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HomeMy WebLinkAboutCity Council Committees - Land Use and Planning Board - 06/22/2015 ECONOMIC & COMMUNITY DEVELOPMENT Ben Wolters, Director PLANNING DIVISION Charlene Anderson, AICP, Planning Manager KENT XFNS Phone: 253-856-5454 Fax: 253-856-6454 220 Fourth Avenue S. Kent, WA 98032-5895 LAND USE & PLANNING BOARD WORKSHOP AGENDA JUNE 22, 2015 7:00 PM BOARD MEMBERS: Randall Smith, Chair; Barbara Phillips, Vice Chair; Frank Cornelius; Navdeep Gill; Katherine Jones; Jack Ottini and Binoy Varughese CITY STAFF: Planning Services: Charlene Anderson, Planning Manager; Hayley Bonsteel, Planner/GIS Coordinator This is to notify you that the Land Use and Planning Board will hold a Workshop on MONDAY, JUNE 22, 2015 at 7:00 P.M. The workshop will be held in Kent City Hall, City Council Chambers, 220 Fourth Avenue S, Kent, WA. No public testimony is taken at LUPB workshops; however, the public is welcome to attend. The workshop agenda includes the following item(s): 1. Accessory Dwellina Unit Zonina Code Amendment General Discussion — Hayley Bonsteel For documents pertaining to the Land Use and Planning Board, access the Co's website at: h tti):Ilken twa.ic7m2.com/citizensIDefau/L ast)x?Departmen tlD=1004. Any person requiring a disability accommodation should contact the City Clerk's Office in advance at (253) 856-5725. For TTy/TDD service call the Washington Telecommunications Relay Service at (800) 833-6388. For general information, contact Economic & Community Development Department, Planning Division at(253) 856-5454. 1 ECONOMIC & COMMUNITY DEVELOPMENT Ben Wolters, Director PLANNING DIVISION Charlene Anderson, AICP, Planning Manager KENT XFNS Phone: 253-856-5454 Fax: 253-856-6454 220 Fourth Avenue S. Kent, WA 98032-5895 June 11, 2015 TO: Chair Randall Smith and Land Use & Planning Board Members FROM: Hayley Bonsteel, Planner & GIS Coordinator RE: Accessory Dwelling Unit Zoning Code Amendment For June 22, 2015 Workshop SUMMARY: At the June 81h 2015 Economic and Community Development Committee meeting, staff received direction to explore broadly the City's accessory dwelling unit standards and related regulations. At the June 22nd Land Use and Planning Board workshop, staff will discuss the current code, local examples, and next steps to both address the zoning code amendment request as well as the broader issues regarding accessory structures. BACKGROUND: Docket #DKT-2014-1 requested a zoning code amendment for ADUs because the current application of ADU regulations does not allow a detached garage and detached ADU to be in the same structure without significant size restriction. There is also a larger issue of standards managing accessory structures on residential lots and staff will be analyzing a variety of possible actions as well as surveying existing ADU homeowners. Staff will be available at the June 22nd workshop to discuss the project. See attached report. HB:ah S:\Permit\Plan\ZONING—CODE AMENDMENT5\2015\ZCA-2015-3 Accessory Dwelling Units\06-08- 15_ECDC_Memo.doc Encl: Accessory Dwelling Unit Standards and Site Coverage Analysis Report cc: Charlene Anderson,AICP, Planning Manager 2 3 Accessory Dwelling Unit Standards and Site Coverage Analysis Report "a tie Araentiraen Ek0 nr ea P^ -e; ax on Df«"d'..2014 1 Zoning Code Amendment Request This zoning code amendment request was made because the current application of ADU regulations does not allow a detached garage and detached ADU to be in the same structure without significant size restriction.The request pointed out a logical discrepancy between part of the code and the current application of the code: the code stipulates a maximum size for a detached ADU (800 square feet or 33% of the size of the principal unit, whichever is smaller) but the current application dictates that the square footage of the ADU be counted by including any square footage of a garage or accessory structure the detached ADU is built into.This application therefore allows a detached ADU to be built freestanding at the maximum size adjacent to a detached garage, but if the owner wanted to combine those structures on one footprint and renovate the detached garage to include the ADU,there would be a limiting size restriction (depending on the size of the garage). The Broader Issue of Site Coverage and Accessory "structures This code amendment request illuminates the need to reassess the City's accessory dwelling standards and maximum site coverage standards.The City of Kent allows many types and sizes of accessory buildings with several standards limiting the bulk of buildings.Accessory structures are defined as a structure on the same lot with,and of a nature customarily and subordinate to,the principal structure. Guest cottages, sheds, garages, and workshops are examples of typical accessory structures often found in rear yards, as well as attached or detached Accessory Dwelling Units (ADUs).The above issue is complicated by the fact that the zoning code allows garages to be sized up to 1,000 square feet for the area where motor vehicles are stored or kept, but the building itself could be larger if the rest of the building is not used for motor vehicles. Go31lls The City Zoning Code lists the goals of ADUs thus: 1.To increase the supply of affordable rental units through better use of the existing housing stock, much of which is under-utilized because the baby boom has been followed by an empty nester boom, because there are fewer children per family, because there are more single parent households,and because there are more one (1) and two (2) person elderly households. 2.To make homeownership more affordable because it will be easier to buy both new and existing homes with the help of an accessory apartment. 4 3.To make it more comfortable for older people to retain their homes because an accessory apartment can provide them with added income,security,companionship,and the opportunity to trade rent reductions for needed services. 4.To make it easier for single parents to meet mortgage payments and hold onto their homes in the wake of a divorce and,as a result, keep their children in the same neighborhood. 5.To increase the opportunity for disabled persons to live independently because accessory units can provide them with both privacy and the proximity to needed support. 6.To reduce the isolation of households that is a result of increased affluence in housing,and/or longer lifespans and periods of frailty,and/or suburban land use patterns that isolate people who cannot drive. 7.To make better use of existing public investment in streets, transit, water, sewer, and other utilities. ECD staff also have the following broader goals in relation to these standards: • Maintain neighborhood look and feel through regulations that manage bulk and protect views. • Ensure regulations are sensible,complete,and effective without unnecessary complication. Background on ADUs Washington State Law requires cities with a population over 20,000 to incorporate ADU regulations into city code (as per RCW 43.63A.215 and RCW 36.70A.400). ADUs are becoming increasingly popular as cities strive to house growing populations in creative ways. ADUs are a form of small-scale infill development.The real benefit to ADUs is that they are a style of housing that complements single- family residential areas, and capitalize on existing housing stock. ADUs provide a source of income, flexibility and creative living solutions for the changing demographics of our cities.ADUs generally require the property owner to either reside in the ADU itself or in the primary residence,ensuring accountability. Our regulations currently allow attached and detached ADUs in all single-family residential zones and in single-family dwellings within the City. If an ADU is constructed in a new single-family home, it is limited to 40%of the principal unit.The size of a detached ADU (for either new construction or an existing home) is limited to 800 square feet or 33%of the size of the principal unit,whichever is smaller. Additionally,there are code provisions for converting structures that were existing at the time of adoption of the ADU code,with limitations (e.g., up to 50%of the size of the principal unit). According to anecdotal evidence from City of Kent current planning staff,there are not many ADUs in the City of Kent, and the most common barrier to the construction of ADUs is the associated cost. Most homeowners are dissuaded from considering, planning or building ADUs by the high cost of school district and traffic impact fees.These fees can be as much as half the planned construction budget ($7,000-$8,000).These fees may be the main disincentive to ADU construction, and may also be 5 negatively impacting the City's ability to meet the goals outlined above. However,ADUs for seniors may be more practical because they are exempt from school impact fees provided there is a restriction precluding school aged children as residents in the ADU. ADU Standards and Prograins ADU standards vary from jurisdiction to jurisdiction. Cities may choose to require one or more parking spaces for ADUs, have specific height limits for accessory structures, or stipulate design standards to ensure ADUs match the neighborhood character. Seattle has several reports and resources available detailing the standards,options and results of its ADU program (called Backyard Cottages or BYCs in Seattle when not built within the primary residence). Seattle provides resources for homeowners considering their own BYC, including a building guide. Seattle, unlike the other jurisdictions surveyed, limits the size of ADUs further when built into a detached garage, as Kent does—however, city planners in Seattle have confirmed that this standard is under consideration for revision. The approach of providing resources that help streamline the ADU process in Seattle is similar to a more extensive ADU program in Santa Cruz, California. Santa Crui s ADU Development Program greatly assists homeowners considering building an ADU on their property. Included in the program are an ADU Plan Sets Book containing seven ADU prototype concepts designed by local and regional architects and an ADU Manual containing a step-by-step guide on how to plan, design and obtain permits for an ADU. The program included community outreach and advertisement, funded by a 3-year Sustainable Communities grant,and the results show the effectiveness of the program.After relaxing the parking requirements, implementing a low-interest ADU loan program for those agreeing to rent their ADU at low-income prices, and the development of the streamlined architectural plan-set and manual,there was a 300%increase in permits issued.This fit in with the City's goals to rapidly address a housing cost crisis by providing more affordable housing. In Portland, Oregon, the removal of disincentives also led to an increase in ADU construction. Portland requires no parking for ADUs, and in 1998 repealed the owner occupancy requirement in an attempt to encourage ADU development. Contrary to common fears, there was no evidence of an explosion of ADU development. Instead,a steady, manageable stream of ADU construction has caused Portland to now have a variety of unique and creative dwelling units providing more density within low-rise developments. Managing Ruimllllllm The most common fears regarding ADUs seem to center on the appearance of too much "bulk" in a low density area. It's important to remember that there are many factors that may affect the appearance of "bulk." • Height of structures • Volume of structures • Space between structures (density of buildings) • Size of lot (smaller lot=structures seem larger) 6 • Orientation of structures(narrow,deep structures appear less bulky than wide structures of same volume) • Materiality of structures (and number of windows) • Whether space between structures has vegetation, is open, paved,etc. • Neighboring bulk M:awmdards.Affe(Aing HinlIlllll The standards most likely to limit bulk are maximum site coverage standards,accessory building coverage standards and accessory building height standards. Maximum site coverage in Kent is defined as that portion of a lot covered by buildings or structures. Currently, the maximum site coverage allowed in Kent ranges from 30%-55%for residential areas,which is similar to other jurisdictions (see Table 1). Table 1. 20% 65% 50% 60% 20,OOOsf or more: 4,500sf+7.5%of lot area Less than 3000sf: 50%of lot area. over 20,OOOsf. 3,OOOsf-4,999sf: 1500sf+ 37.5%of lot area 5,OOOsf-19,999sf: 2,250 sf+ 15%of lot area over 3,OOOsf over S,OOOsf 35% 1000sf+ 15% lot area 35% 50% None None 35% 50% 35% 35% 35% 40% 35% 35% 25% 50% 30% 55% *Federal Way and Tukwila count all impervious surfaces towards their site coverage—not just houses and accessory buildings, but paths, driveways, patios, etc. Most cities(including Kent) limit impervious surface with a different standard. For instance, a single family lot in Renton zoned R-6 has a maximum building coverage of 40%but a maximum impervious surface coverage of 55% (see table 2). In Kent,a lot of similar size would be zoned SR-4.5 and have a maximum allowed site coverage of 45%with a maximum impervious surface coverage of 60%. In Federal Way,there is a single standard limiting all impervious surface including buildings,and 7 for the same lot size as in the above examples,the maximum lot coverage (buildings and all impervious surfaces) is 60%. The accessory building coverage standard is another standard which may limit bulk of accessory buildings. Of the jurisdictions reviewed, fewer than half contained an accessory building coverage standard.The accessory building coverage standard in Kent only applies when there is a guest house on the property.The standard states that "a guesthouse,together with other accessory buildings, shall not exceed 30%of the area of the rear yard on which it is built." See Table 2 for accessory building coverage standards in local jurisdictions. Table 2. The lot coverage of the primary residential structure combined with all accessory buildings shall not exceed the maximum lot coverage of the Zoning District. none Combined building coverage of all detached accessory structures not to exceed 15% of total area of site. A detached accessory dwelling unit, together with any other accessory structures and other portions of the principal structure, is limited to a maximum combined coverage of 40 percent of the rear yard.The combined building coverage of all detached accessory structures may not exceed 15%of the total area of the site. none Total square footage of all accessory building footprints can be no more than 15%of the square footage of the lot. none Accessory buildings and structures within residential zone classifications, including but not limited to storage buildings and detached private garages... shall cover a maximum of 5%of the lot area,and shall have an exterior height no greater than 20 feet or the height of the primary building or structure,whichever is less. Detached accessory structures are limited to a maximum lot coverage of 10 percent except as otherwise provided.The 10 percent maximum lot coverage applicable to detached accessory structures located on lots less than 20,000 square feet can be exceeded provided a written mutual agreement of all abutting property owners is recorded with the King County Division of Records and Elections and filed with the City Clerk. However,the requirements for maximum lot coverage by structures ... shall not be exceeded. none none There shall be not more than one (1) guesthouse on any one (1) building site,which, together with other accessory buildings,shall not exceed thirty (30) percent of the area of the rear yard on which it is built. 8 Some jurisdictions limit the height of accessory structures.See Table 3 for accessory height limits in local jurisdictions. Table 3. 30' but not taller than primary. 30' 18' 12-16' plus roof,depending on width of lot None 15' generally, 25' with stipulations 30'-45' 20' or height of primary structure,whichever is less 15' unless all abutting property owners mutually agree Same as primary structure 16-35' Same as primary structure Occasionally,jurisdictions will require a certain amount of rear or usable yard space as an alternative way of preserving the open character of a residential area.This standard could simply be another calculation homeowners must do in planning their ADU (a hoop to jump through), or it could effectively supplement the maximum site coverage standards in a way that is more explicitly about rear yard space. Tacoma has no maximum site coverage standards, and instead has a maximum accessory building coverage standard (15%of lot) alongside a minimum usable yard space standard: "All lots shall provide a contiguous rear or side usable yard space equivalent to at least 10%of the lot size.This usable yard space shall meet the following standards: (1) Have no dimension less than 15-feet,except for lots that are less than 3,500 square feet, where the minimum dimension shall be no less than 12 feet. (2) Not include structures, parking,alley or driveway spaces or required critical area buffers." (Tacoma Municipal Code 13.06.100) This approach is more focused on the outcome of usable yard space. To understand how the regulations might play out,graphics renderings can help conceptualize ADU massing differences between various jurisdictions.To accurately compare the complex set of standards, an example lot with the following dimensions was used as a baseline: • Lot size: 7,980 square feet • Lot width: 60 feet • Lot depth: 133 feet 9 • Baseline structures on lot: o House: 1,222 square feet footprint (1900 square feet of living space) o Detached garage: 576 square feet (two parking spaces) o Small shed: 27 square feet • Configuration of lot (see Renderings 1-3): o House set back 20 feet from front lot line o Side yards each 10 feet wide o Path from side entrance of house to detached garage (202 square feet) The three renderings below show the base lot configuration (from three different views). Rendering 1. Rendering 2. Qii / .„ f f Rendering 3. � - i I� y kf✓, t VR� �a � 10 If the homeowner for this lot wished to create an ADU at its biggest possible size,the following series of images conceptually show the visual bulk potential based on the standards for each jurisdiction and whether the ADU is attached, detached and freestanding,or detached but in the same structure as the garage. In most cases shown below,the example lot with ADU is nowhere near the maximum site coverage allowed in that city,and the homeowner would have the option of adding more non-habitable accessory spaces (such as workshops,etc.)—however, this is not shown as (a) it is unlikely and (b) there are many complicating factors regarding arrangement of various structures on a lot. AUam:ilina',rv,d In this example,one can see the bulk of an addition that is somewhat built into the structure of the house but does not decrease the square footage of livable space in the house. Renderings 4-7 show attached ADUs at a likely maximum size given each jurisdiction's standards(from different views). Most lots look quite similar, as the standards for attached ADUs are fairly similar, although Auburn's larger size maximums makes for a slightly bulkier result on that lot.Tukwila's higher parking requirement also stands out,with two spaces added instead of one.The Kent example lot shows an ADU at about 627 square feet,which is 33%of the living space of the primary residence. Since this number is less than 800 square feet, it is the maximum to which a Kent homeowner would be able to build the ADU. These renderings show that Kent allows similar amounts of bulk to other jurisdictions in its attached ADU standards. Note that Tacoma's rear yard space requirement required moving the shed closer to the ADU to allow for the full rear yard dimensions required. Rendering 4. X, � y ' � 4 I� �6� rrt ry p p J �0'SIIN ���� � � i` � � iea pu �� "a/)4 �.." � l�f�I�W°✓Add � %'!�.4r��'� � 4 ///i{l���n✓C d�/fr/ Y„ ✓I I(l 1�]JYf/�d yWfm a NQ i lfti OW�IV �f �J4 nNN�� 11 Rendering S. Aj lq ri Y 1 r " kr %� �k,117 �rf`r ,i,l ° mr e Rendering 6. 1, k �/✓ ' )lV i .�I� � rid ,✓ f" 1-. rv�� ��_ t ,e* r . r� r Rendering7. r t V( Yll oll t 12 1)O:acIhed ... 1reesiilan d!I!n Detached ADUs are not permitted in Bellevue, Bothell or Tukwila,so those lots are shown without any ADUs in the renderings below.Tacoma allows detached ADUs in higher single-family density zones, but only attached ADUs at the size of the example lot,so that lot is also shown without any ADU in Renderings 8-11. Seattle's height limit of 16' (plus roof pitch) makes for slightly less bulk on that lot, but otherwise the lots with ADUs look pretty similar. All ADUs shown below are between 627 and 950 square feet. Rendering 8. M.� � t� l aA6 ? `wqb� i 1 y w „r {� k�s mob a m* 1 is ✓w "" dd" :J, pk m ,bMM. n � d �a pie 4 u i a 1 � Rendering 9. c," Lv4 ✓s �����„�� ,.,�' � ,/ ��� .,. � "����xE �°I✓ +��,` ^,w;„( it (�✓�;/ li�������i��I k Vly 13 Rendering 10. r ol a� ✓ d` ,� 4 .b e� m �p � f Mxno 1 w f 'rr� "mwik,' r il nd f , Myrm I rv'�/ µ d�i��l 1 ""w«°f✓/I (I i i Rendering 11. 41 � f '�tixwme G�wws w t ' ""g, �M� ��, y u✓ /'�C �J�� r �ndF'w \ .��. lJi�e p tir'I r' ht ¢y u r k y 4 r\ -� 14 1)O:acIIhed ... wHIII Garage Again, Bothell, Bellevue and Tukwila do not allow detached ADUs at all,and Tacoma only allows them at higher single-family densities,so all four are shown without ADUs in the below renderings. Kent and Seattle both count garage space as part of the ADU square footage when in the same structure, so the potential ADU bulk is much lower for these two lots. Rendering 12. OFl Vai 4 � ! i i p Y kf iHl 6 i ,l i Rendering 13. . r' 5 � o r M � yr .oi.1� 15 Rendering 14. r l l I ZQ r p , (, r r r � r r , Rendering 15. 1l 'r m`i if �C r�1r l iI a l � w r, r' Zfl' r AA pp� 'W Y�fo II J M 16 V!I!ew from N ell g1hIlIlboriun 1l'mmw°dIh DO adhmKKd mmiffi Gam°ge From the porch across the street,one can see more bulk behind the house on the Portland lot, whereas the smaller ADU size behind the house on the Kent lot is barely visible. Rendering 16. de M fl Y 4 R; ' r Rendering 17. 1, '; � I a t`1 i 4 t� 17 V!I!ew from N ell g1hIlIlboriun P'mmm°m.11h iM6111mA .A1`U1.0 Attached ADUs are hardly visible from the porch across the street. Rendering 18. v V!I!ew from Nell g1hIlbOrIlln 1''mmm°m.11lm 1:'UmKKi�mm.IllmmKKm� 1 � m.m.. i�;mmmm�ui�m� .U�U:'U1.0 Freestanding detached ADUs are somewhat more visible, particularly if they are built to the maximum allowable height (which is the height of the primary structure in Kent). 18 Rendering 19. �if 1 n" f w c � ail SiP:m°M egies for Managing 11m.mllllllm In M mmil: According to the above graphical comparisons, Kent has mostly comparable bulk allowance standards to other jurisdictions. Requiring the garage floor area to be counted as part of the ADU when built into the garage limits the appearance of bulk in that type of arrangement—however, most jurisdictions do not require the structure to be counted this way, and it is not the most effective means to limiting bulk in Kent (given the higher maximum size of a detached ADU separate from a garage). Next steps„ To better achieve Kent's goals with regards to ADUs, staff is pursuing a work program to analyze the actions below. 19 Actions under Background Summary consideration Resolve square The square footage calculation application This code amendment would footage calculation was the original topic of the zoning code allow the square footage of an application. amendment request.Current application of ADU to be counted separately zoning regulations requires square footage of from the accessory structure garage or accessory structure to be counted footprint if combined. towards ADU square footage maximum if built in the same structure.This limits the size of the possible ADU if it is built on same footprint (or part of same structure). Resolve accessory Kent regulations stipulate that guest houses, This code amendment would coverage when combined with other accessory require that the accessory application. structures, cannot cover more than 30%of building coverage standard for the rear yard—but the regulation only guest houses apply to all applies if there is a guest house. If no guest accessory structures. house is present, accessory structures may cover as much of the rear yard as desired,as long as maximum site coverage and maximum impervious surface coverage requirements are met. Introduce Jurisdictions such as Portland, Seattle, This additional language would maximum height Auburn and Tacoma have a maximum height limit the height of all accessory standard. standard for accessory structures. Kent structures. allows accessory structures to be any height as long as they don't exceed the height limits of the zoning district. Introduce rear yard Rear yard space standards are less common, This additional language would space standard. but are another form of regulation which can set a minimum size of"useable" manage accessory structure coverage. Rear rear yard space for the lot, based yard space standards require an open area of on a percentage of the total lot a certain size that is not covered by size or minimum dimensions. structures or surfaces (patios, walkways,etc.) Tacoma is one local example of a jurisdiction that has a useable rear yard space standard. Conduct survey of There are a handful of constructed ADUs in The objective of a survey of ADU ADU homeowners Kent but staff does not have a homeowners or permit applicants or those who have comprehensive understanding of the barriers would be to find out what the applied for ADU to constructing them, how existing ADUs are opportunities and barriers have permits. being used, how city regulations may have been for ADU construction in impeded or aided homeowners interested in Kent.The results of the survey ADUs in the past, etc. ADUs are also subject may inform a promotional or to traffic and school impact fees, and the incentivizing program. effect of these fees on the feasibility of constructing an ADU is not well understood by staff. 20 Pursuing these strategies could help the City of Kent more proactively encourage flexible housing option development. More ADUs in Kent could allow single-family neighborhoods and residences to take on more of our growing population without sacrificing character.