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HomeMy WebLinkAboutA002 - Council Action Form dated September 25, 2001 Vjl� ITEM #: DATE: 0 /25/01 1 COUNCIL ACTION FORM SUBJECT: RECOMMENDATION TO THE CITY COUNCIL ON A REQUEST TO REDUCE THE MINIMUM LOT AREA REQUIRED FOR SINGLE-FAMILY ATTACHED DWELLINGS IN THE SUBURBAN RESIDENTIAL MEDIUM-DENSITY (FS-RM) ZONE, TO CHANGE THE DEFINITION OF "SINGLE-FAMILY ATTACHED DWELLING", TO CHANGE THE MINIMUM REQUIRED REAR YARD SETBACK FOR SINGLE-FAMILY ATTACHED DWELLINGS IN THE FS-RM ZONE, AND TO ADD A MINIMUM OPEN SPACE REQUIREMENT FOR BACK-TO-BACK SINGLE FAMILY ATTACHED DWELLINGS IN THE FS-RM ZONE. BACKGROUND: At their meeting on May 22, 2001, the City Council directed staff to work with the developer to examine possible changes to the Zoning Ordinance that precludes the construction of back-to-back townhouse units. Developer Proposal. A local developer proposes to create lots for single-family attached dwellings in the Suburban Residential Medium-Density (FS-RM) zone that are smaller than the minimum lot size currently allowed. The lot size proposed is 2,400 square feet for the exterior (end) lots and 1 ,200 square feet for the interior lots. The layout of the lots, as proposed by the developer, places units back-to-back in the same structure. For example, if the structure includes a total of eight (8) units, four (4) units would face the front of the structure and four (4) units would face the back of the structure. The rear lot lines would bisect the structure down the center (see attached graphic). The developer plans to construct the individual units such that each unit would occupy all of the lot area for the unit, except for the front yard setback. For example, in the case of an 8-unit single-family attached structure, there would be eight (8) units, each unit under separate ownership. The structure itself would encompass all of the lot area for the eight (8) units, except for the front yard setback. The structure, including the eight (8) individually-owned lots, would be placed on one larger lot that would be owned in common by the owners of all eight (8) units. The lot owned in common would abut the public street right-of-way. Consistency of the Developer Proposal with the Current Zoning Regulations. The Developer proposal does not meet several requirements of the current Zoning Ordinance. The inconsistencies with the adopted Zoning Ordinance are described as follows: • Definition of Single-Family Attached Dwelling. The proposed lot arrangement for the single-family attached dwellings would require a Zoning Ordinance amendment to the definition of "Single-Family Attached Dwelling". The current definition requires that each unit have its own front and rear access to the outside. The Developer proposal would eliminate the rear access to the outside for each unit since the rear of each unit would back up to the rear of another unit in the same structure. The Zoning Ordinance defines a single-family attached dwelling in Section 29.201(52) as follows: Dwelling, Single-Family Attached means a single-family dwelling unit in a row of at least two such units in which each unit has its own front and rear access to the outside, no unit is located over another unit, and each unit is separated from any other unit by one or more common fire resistant party walls and the unit is located on a separate lot. • Minimum Required Lot Size. The proposed lot size would require a Zoning Ordinance amendment to the minimum required "lot area" for Single-Family Attached Dwellings. The Developer proposes a minimum lot size of 2,400 square feet for exterior (end) units and 1 ,200 square feet for the interior units. The current minimum lot area for Single-Family Attached Dwellings is 3,500 square feet for all units. • Minimum Rear Yard Setback and Lot Arrangement. A Zoning Ordinance amendment to the minimum required rear yard setback would be required for the Developer proposal. The proposed size and arrangement of the lots back-to-back does not provide for rear yard setbacks on each individual lot. The minimum rear yard setback for a Single-Family Attached Dwelling is 25 feet. Currently, the FS-RM Zone does not allow this. To allow lots back-to-back requires approval of the single-family attached development as a Planned Residence District (F-PRD). The F-PRD district ordinance provides for considerable flexibility in the administration of conventional zoning requirements such as setbacks and area requirements. • Open Space. The Developer proposal does not include a proposed change to the "open space" requirement in the Zoning Ordinance. The minimum required "Open Space" in the FS-RM Zone is 10% of the gross land area. Staff believes this minimum open space requirement should be increased to 15% of the gross land area since the Developer Proposal eliminates the open space that exists in the rear setback area of each individual lot. This would require a Zoning Ordinance amendment. Staff Proposal for an Amendment to Section 29.1202(5)-2 of the Zoning Ordinance. On August 16, 2000, the Planning and Zoning Commission reviewed a Zoning Ordinance amendment, proposed by staff, that would change the minimum required lot area for "Single Family Attached Dwellings" in the Suburban Residential Medium Density (FS-RM) Zone from 3,500 square feet per unit to 3,500 square feet for exterior units and 1,800 square feet for interior units. At this same meeting, a local developer requested that the minimum required lot area for Single Family Attached dwellings in the Suburban Residential Medium Density (FS-RM) zone be changed to 2,400 square feet for exterior units and 1,200 square feet for interior units. The Commission then directed that staff analyze the staff proposal and the Developer proposal, based on the following factors: • Density and Open Space; • Traffic; • Stormwater Run-off; and • Water Consumption/Waste Water Production. Staff Analysis of the Factors Identified by the Commission. Staff's analysis of the factors identified by the Commission is as follows: • Density; This assumes a net open space of 12% (15% gross) would be provided on the lot area owned in common around the individual lots for single-family attached dwellings. There would be open space on the individual lots only in the front setback area. The density varies, depending on the number of units in each structure, since the greater the number of smaller structures with end units would serve to decrease the overall density. The density for the staff proposal assumes a net open space of 8% (10% gross) provided on each individual lot. There would be no lot owned in common, as would be necessary for the Developer proposal. Staff Proposal: • 12.09 lots/net acre ( 4-plex development) (8% net open space) • 3.55 lots/net acre (12-plex development) (8% net open space) Developer Proposal: • 9.46 lots/net acre ( 4-plex development) (12% net open space) • 13.69 lots/net acre (12-plex development) (12% net open space) 3 • Open Space: The current FS-RM zoning regulations mandate a minimum amount of open space not less than 10% of the gross land area. This converts to 8% of the net land area. The Developer proposal eliminates private open space on each individual lot, except for the front yard setback area. Therefore, all owners of the single-family attached dwellings have primarily the common open space available for use. This could lead to use of the common open space by more of the residents of the single-family attached structures thereby creating the need for more open space. If the Developer proposal is adopted, staff recommends that a minimum of 15% of the gross land area be required for open space. This converts to 12% of the net land area. • Traffic: Staff Proposal: • 136 trips/net acre (based on 12-plexes) Developer Proposal: • 137 trips/net acre (based on 12-plexes) • Stormwater Run-off. The change in stormwater run-off would be proportional to the change in density. This would require that storm detention facilities be constructed to accommodate the stormwater run-off on the site so as not to increase the rate of stormwater run-off from the development onto neighboring properties. • Water Consumption/Waste Water Production: No significance change. Commission Action (October 4, 2000). The Commission reviewed staff's findings and referred the proposal back to staff for further analysis. Land Use Policy Plan (LUPP). The Land Use Policy Plan provides for Suburban Residential development to occur in the portion of the Planning Area described as "New Lands". The "Suburban Residential" concept is seen as a development alternative to "Village Residential" and is applicable to properties that do not meet the criteria for Village Residential or for those land owners who are not interested in pursuing the design integration of a village and all of the associated density and use advantages of Village Residential. 4 Suburban Residential. Suburban Residential is described as development where the land use has the following characteristics: • Distinct and generally homogeneous land uses; • Limited focus on building and development design integration; • Greater emphasis on vehicular mobility; and, • Less land use density/intensity. Suburban Residential development is intended to occur similarly to past residential patterns of the previous 20 to 30 years. The limited focus on building and development design integration necessitates the requirement of effective landscaped buffers between distinctly different land use. Street design should improve connections where possible with pedestrian improvements including sidewalks throughout and mid-block cross-walks for long blocks. Pedestrian connections for parks, schools, and open space facilities will also be expected. Typical amenities that should be included in Suburban Residential development may include, but need not be limited to the following: • Sidewalks on both sides of all streets, walks, and bicycle connections to school facilities, parks, open space, and other pedestrian and bicycle linkages to the rest of the city; • Public and/or private park and open space amenities to accommodate the higher density and concentration of people that will result from Suburban Residential development; and, • Development design features that fully protect designated environmentally sensitive areas. LUPP Goals and Objectives. The following goals and objectives found in the Land Use Policy Plan apply to this proposal: Goal No. 4. It is the goal of Ames to create a greater sense of place and connectivity, physically and psychologically, in building a neighborhood and overall community identity and spirit. It is the further goal of the community to assure a more healthy, safe and attractive environment. Objectives. In achieving an integrated community and more desirable environment, Ames seeks the following objectives. 4.A. Ames seeks to establish more integrated and compact living/activity areas (i.e. neighborhoods, villages) wherein daily living requirements and amenities are provided in a readily identifiable and accessible area. Greater emphasis is placed on the pedestrian and related activities. 5 Goal No. 6. It is the goal of Ames to increase the supply of housing and to provide a wider range of housing choices. Objectives. In increasing housing opportunities, Ames seeks the following objectives. 6.B. Ames seeks to establish densities of a gross average six dwelling units per acre in maximizing the number of housing units in new areas. 6.C. Ames seeks to establish higher densities in existing areas where residential intensification is designated with the further objective that there shall be use and appearance compatibility among existing and new development. Existing Attached Single Family Developments Similar to the Developer's Proposal. Attached are photographs of two existing developments. One is located in Ames and the other in Ankeny. Bloomington Court, a Planned Unit Development in Ames, was approved in November, 1995. The style of these structures are very similar to what is proposed by the developer in the Alternative Amendment. The structure pictured includes eight dwelling units, with a double-car garage for each end unit and a single-car garage for each of the four interior units. The units are placed on the lots back-to-back, as proposed by the developer for the FS-RM zoning district. The lots occupied by individual units are all included in a larger lot that is owned in common by all the owners of the single-family attached units. It is this larger lot, owned in common, that abuts the public street and provides frontage on a public street, as required by the Zoning Ordinance. Two structures are illustrated in the photos of the development in Ankeny. One structure is very similar to the Bloomington Court example. It includes double-car garages on the ends and four single-car garages for the interior units. The other structure includes a total of 12 units, with double-car garages for the end units and single-car garages for the interior units. These units are also constructed back-to-back, and are located on individually-owned lots that in turn are encompassed by a larger lot, owned in common, with frontage on a public street. Staff Comments. It is clear that Zoning Ordinance amendments, as described in this report, would be necessary before a single-family attached development could be approved, as described in the Developer proposal. The Land Use Policy Plan provides for housing developments in the FS-RM zone that are repetitive and homogeneous in their nature, with a vehicular orientation, as described in the Developer proposal. In addition, the LUPP suggests that such developments provide for common open space and pedestrian connections. The Developer proposal is consistent with the LUPP goal to increase the supply of housing and to provide a wider range of housing choices. The major issue to focus on with regard to the Developer proposal is the lot arrangement. The impact on density, amount of open space, traffic, stormwater run-off and water consumption/waste water production is less consequential. The development pattern would be greatly different than what is currently allowed. 6 Single-family attached units would be arranged in a back-to-back configuration with no open space between the rear side of individual units, as is currently provided for in the zoning regulations. Garage doors would line the front and rear sides of all structures. Current regulations would have garage doors only on the front or rear side of the structures, not both. The entire lot for each unit would be occupied by the structure, except for the front yard setback area, and open space would be located in a common lot on the perimeter of the structure. Upon further analysis, since the Planning and Zoning Commission last considered the proposal to change the minimum lot size for single-family attached dwellings in the FS-RM zone, staff recommends the Council approve the Zoning Ordinance changes necessary to allow the "Developer proposal" if the Council believes this development pattern for single-family attached housing in the FS-RM zone is consistent with the Land Use Policy Plan. 7 RECOMMENDATION OF THE PLANNING & ZONING COMMISSION: The Planning and Zoning Commission reviewed these proposed changes to the Zoning Ordinance at their meeting of September 5, 2001 and approval was recommended. ALTERNATIVES: 1. The City Council can approve the "Developer proposal" to reduce the minimum lot area required for single-family attached dwelling units in the FS-RM Zone, to change the definition of "single-family attached dwelling", to change the minimum required rear yard setback for single-family attached dwellings in the FS-RM zone, and to add a minimum open space requirement for back-to-back single family attached dwellings in the FS-RM zone. 2. The City Council can approve a modification of the "Developer proposal" to reduce the minimum lot area required for single-family attached dwelling units in the FS-RM Zone, to change the definition of "single-family attached dwelling", to change the minimum required rear yard setback for single-family attached dwellings in the FS- RM zone, and to add a minimum open space requirement for back-to-back single family attached dwellings in the FS-RM zone. 3. The City Council can decide not to approve the "Developer proposal" to reduce the minimum lot area required for single-family attached dwelling units in the FS-RM Zone, to change the definition of "single-family attached dwelling", to change the minimum required rear yard setback for single-family attached dwellings in the FS- RM zone, and to add a minimum open space requirement for back-to-back single family attached dwellings in the FS-RM zone. This alternative does not eliminate the possibility of a residential development with this type of housing. It is currently possible to construct this housing type through approval of a Planned Residential Development (PRD) by the City Council. 4. Action on this request can be postponed and referred back to City staff for additional information. 8 CITY MANAGER'S RECOMMENDED ACTION: The City Council must decide whether you believe the addition of these "back-to-back" single family attached dwellings are appropriate throughout the community. If the City Council believes they are appropriate, it is the City Manager's recommendation that Alternative #1 be adopted. This action will allow this type of single family attached dwellings in the Suburban Residential Medium Density zoning district by right rather than only if a Planned Residential Development (PRD) is approved by the City Council. Alternative #1 would approve a change to the Zoning Ordinance to reduce the minimum lot area required for single-family attached dwelling units in the FS-RM Zone, to change the definition of "single-family attached dwelling", to change the minimum required rear yard setback for single-family attached dwellings in the FS-RM zone, and to add a minimum open space requirement for back-to-back single family attached dwellings in the FS-RM zone. Attachment s:\Council Action Forms\Text Amendments\attachedsinglefamily092501 9 8-Plex Proposal NOT TO SCALE PUBLIC OR PRIVATE STREET Front Yard Setback 2,400 sqft 1,200 sqft 1,200 sqft 2,400 sqft Private Lot Private Lot Private Lot Private Lot Ah 2,400 sqft 1,200 Sqft 1,200 Sgft 2,400 sqft Private Lot Private Lot Private Lot Private Lot — — — — — — — — — — — — — — — — — — — — — — — — Front Yard Setback Outer Lot is Under Common Ownership PUBLIC STREET Current FS-RM Zoning Regulations (8-Plex) Cz } U CZ Q) Q) Cc U) — — — — — — — — — — — — _ _.._ ___ — — — — — — — — �. _._ — — — — — — — 3,500 sqft 3,500 sqft 3,500 sqft 3,500 sqft 3,500 sqft 3,500 sqft 3,500 sqft 3,500 sqft Private Lot Private Lot Private Lot Private Lot Private Lot Private Lot Private Lot Private Lot � U (z C � O U Li (n PUBLIC STREET ZONING ORDINANCE TECHNICAL AMENDMENTS TEXT AMENDMENTS — Additions are in bold and italics. Deletions are str elEen through. ARTICLE 2 (RULES OF CONSTRUCTION AND DEFINITIONS) Section 29.201. DEFINITIONS. (52) Dwelling, Single Family Attached means a single family dwelling unit in a row of at least two such units in which each unit has its own front and rear access to the outside, no unit is located over another unit, and each unit is separated from any other unit by one or more common fire resist ARTICLE 12 (FLOATING ZONES) Section 29.1202. "F-S" SUBURBAN RESIDENTIAL ZONE. Table 29.1202(5)-2. Suburban Residential Floating Zone Residential Medium Density (FS-RM) Supplemental Development Standards Minimum Lot Area (Single Family Attached Dwelling): 3-,500 sf per unit 2,400 sf per unit for exterior units 1,200 sf per unit for interior units Minimum Principal Building Setbacks (Rear Lot Line): 25 ft. 0 ft. for back-to-back single family attached dwellings Table 29.1202(6) Suburban Residential Floating Zone Suburban Regulations Open Space Requirement: A minimum of 10% of the gross area shall be devoted to private or public open space. A minimum of 15% of the gross area shall be devoted to private or public open space for back-to-back single family attached dwellings. Ownership and maintenance responsibility of the open space shall be a Homeowner's Association or a similar private entity. t ���, 4✓} F d}Y `i 1� _ lk !. { 7 {� Tta�°F'Fa.�tr� i 1• j{}t° a: i'i �Fi` + 77-7­ {. �f .u.�aaa+Gnw rr+ k ,rl� f{ i i t !'ii 1�,�.� • �.�t., Sal �) cud` s;:-.a•..+.....- ,+a 1 f t+'�t f �• °ri � � Tr' i , ii . 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