City of Ferndale PLANNING COMMISSION STAFF REPORT

Transcription

1 City of Ferndale PLANNING COMMISSION STAFF REPORT MEETING DATE: September 13, 2017 AGENDA BILL # SUBJECT: Multifamily Zoning Workshop DATE: September 13, 2017 FROM: Jori Burnett PRESENTATION BY: Jori Burnett EXHIBITS 1: Draft Residential Multi-Family Medium chapter 2: Potential Rezone Areas RECOMMENDATIONS: No final decision is required. Based on direction provided by the Planning Commission in July, Staff has revised the draft RMM zone, focusing primarily on examples of poor quality design as well as incorporating good examples of existing City buildings into the illustrations. BACKGROUND: Planning Commissioners in July expressed confidence in the overall approach to the RMM zone. Staff had indicated some uncertainty, since the zone is very different from normal Euclidian zoning. In fact, the comments received by Staff in July tended to focus on specific wording, clarification of certain processes, and the incorporation of local examples into the zone. Staff has also added a series of examples of poor-quality design, and we expect that the Planning Commission s review of these bad examples will represent the bulk of conversation during the September meeting. If this is the case, Staff suggests that the Commission consider holding a public hearing in October. ANALYSIS: As noted, the majority of changes to the zone have been made to the illustrative examples, particularly those examples of bad design. It is remarkably difficult to find examples of designs that are so terrible as to not include any sort of attractive element: at some point, someone felt that the design was appropriate, and though styles change, the basic elements of multifamily design remain somewhat consistent. Plus, Staff did not want to utilize an example of themed multifamily designs that were intentionally irreverent. We wanted to find examples of designs that tried but failed miserably. Staff also sought to inject some humor into the examples of poor design. While we do not anticipate that readers will roll on the floor laughing, the objective is to allow the applicant and the City to share a joke at a bad building s expense and to agree that while the bar to avoid these bad designs is not high, additional thought should be given when designing multifamily development in Ferndale. Page 1 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

2 The draft code also seeks to make the comparison between good design (of which there are always several examples) immediately above the corresponding bad design. The color schemes of the good designs are generally bright and colorful, while the color schemes of bad designs are often dark and depressing. What does the Planning Commission think? Are the good examples good? The bad examples bad? Do the jokes fall flat? Could it be argued that the examples of good design could, in a different context, be bad design (or vice versa)? For example, could the High Density Single Family Elements to Avoid picture actually be an example of good design, if it were taken in spring with full leaf cover, bushes in front of the buildings, and a playground in front? Or, does the text provide sufficient direction to the reader to interpret the intent? Overall, Staff has tried to anticipate how this zone would actually change multifamily development, compared to the existing RM 1.5 or RO zones. Commissioners have been clear that this zone should not be used to try to price multifamily development above the market, but instead to ensure that multifamily development is not designed so cheaply as to create issues down the road. We believe this zone would accomplish this - for the majority of developments currently planned in the RM 1.5 or RO zones, not much would change. More likely, the zone would increase Staff s ability to call out deficiencies the lack of landscaping here, or a potential improvement there. A Development Perspective When discussing the zone with potential applicants, the majority of individuals seem to be receptive to the concept. There is some hesitancy in adopting any sort of design standard, as design is subjective and there is the concern that Staff will be comfortable only with designs that they are familiar with. But most seem to realize that bad design does happen, and that the City is often blamed for allowing bad design to be built. Applicants have also questioned why Staff has proposed a density range of units per gross acre, when the current RO and RM 1.5 zones allow up to twenty-seven units per acre. The short answer is that applicants rarely if ever approach even twenty units per acre, and Staff wished to create some separation in density in these zones compared to the potentially more-dense Downtown zones. The twenty-seven unit per acre limitation was more the result of a mathematical calculation associated with the RM 1.5 zone than it was a policy-driven limitation. Staff has no concern with establishing a different maximum density (25 units per acre? 30 units per acre?), but we do believe retaining a 10 unit per acre minimum is appropriate, in order to ensure that properties are being utilized appropriately. Concerns have also been expressed that small lots will not be able to achieve the same sort of comprehensive design (buildings, infrastructure, landscaping, open areas) envisioned by the code as larger lots. Staff suggests that the provisions of FMC allowing for flexibility in density could be applied, at least for the time being. We also anticipate that the next multifamily zone that will be reviewed will be focused on smaller lots (generally within the Griffintown neighborhood and surrounding Downtown), and that the RMM zone will be modified at that time to adopt the standards of that other zone, for lots of less than ½ acre. Areas to be Rezoned This brings the topic back to the areas to be rezoned. Exhibit 2 reflects those areas originally proposed for the RMM (then called transition ) zone. These are areas of the City currently zoned for multifamily development and generally typified by large existing parcels (an acre or more in size). The area includes the entirety of multifamily zoning Page 2 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

3 along Portal Way, the majority of multifamily zoning along Main Street (west of Washington Avenue), multifamily zoning along LaBounty Drive, and along Second Avenue (south of Cherry Street). Within these larger areas there are some parcels that are less than an acre in size. We do not believe it is appropriate to zone these smaller parcels separately, with the possible exception of Second Avenue. For those smaller parcels that are subsumed within the larger zone, the exemptions described above could be applied or the parcels could be assembled by an applicant to create a larger development site. Staff will be able to show these areas to the Planning Commission in somewhat greater detail on the computer screens during the Planning Commission meeting. If there are suggested changes to the rezoned areas, Staff will amend the map accordingly. The property owners within these areas would then be notified ahead of the scheduled public hearing. CONCLUSIONS: At this time Staff is struggling to identify additional substantive changes to the draft that must be made, which is typically an indication that the subject is ready for a public hearing. If it is not, Staff requests that the Planning Commission identify any remaining issues that must be addressed. Page 3 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

4 Chapter RESIDENTIAL MULTIFAMILY MEDIUM DENSITY (RMM) Sections: (TBD) Purpose. The main intent of the Residential Multifamily Medium Density (RMM) zone is to provide housing opportunities in a variety of forms at urban densities of between ten and twenty units per gross acre. The zone has been established in those areas of the City which predominantly consist of legal lots of record of one acre or more, thus enabling a variety of housing forms as well as the establishment of amenities and infrastructure necessary to serve the development, as compared to multifamily development on smaller properties that may have diminished opportunity to plan for or to establish comprehensive developments. By requiring densities of between ten and twenty units per gross acre, the medium density zone also acts as a transition zone between single family residential zones and more-dense multifamily, mixed use, or commercial zones. The site and building design guidelines contained in this chapter are intended to provide applicants with a general description of the City s expectations for design that will create a safe and attractive sense of place for the community and residents. Substantial flexibility is provided in order for applicants to identify creative, site-specific steps to address these issues Permitted principal uses. Permitted principal uses are as follows: A. Residential development resulting in densities of between ten and twenty residential units per gross acre. See Section XX of this chapter for visual representations of recommended designs. B. Day care or day nursery; C. Adult family homes; D. Municipal use Permitted accessory uses. Permitted accessory uses are as follows: Page 4 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

5 A. Laundry, recreation and other necessary facilities used exclusively by apartment building tenants; B. Permitted accessory uses in the single-family dwelling zones; C. Home occupations C. A use customarily incidental to the permitted principal use. (Ord (Exh. 7), 2016; Ord , 2013; Ord , 2013; Ord , 2010; Ord , 2006) Conditional uses. A. Conditional uses are as follows: 1. Recreation facility; 2. Church; 3. Grocery store, drugstore, coffee shop, professional office, bother retail uses customarily defined as serving the needs of the surrounding residential neighborhood,. The aggregate size of all commercial uses shall not exceed 3,000 square in gross floor, unless otherwise authorized through the PUD process. 4. Complete life care retirement community (reviewed as a PUD); 5. Public use; 6. A use similar in nature and effect to a permitted principal use or conditional use Minimum lot size. Minimum lot size is as follows: A. Three thousand five hundred (3,500) square feet for single family detached residences; for all other uses, minimum lot size shall be based upon the ability of the applicant to demonstrate compliance with all other adopted City regulations while achieving the density range described by this chapter Density. A. The achieved density of development within the RMM zone shall be between ten and twenty units per gross acre, based on the entirety of the property to be developed. Page 5 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

6 B. Exceptions. Flexibility in density allowances may be granted administratively in the following cases. However, flexibility shall not be considered a waiver from density requirements, and the applicant shall be required to obtain densities as close to the range described by this zone as practical. i. An applicant may be granted relief from achieving the range of densities required by this chapter if they are able to demonstrate that it is not practical to achieve required densities while also satisfying infrastructure and environmental protection requirements. In evaluating these claims, City staff may not consider the cost of compliance as the primary factor in granting flexibility, but may consider whether the City s requirements can all be met in a manner that would result in a development that meets the overall design requirements of this chapter. ii. Properties of less than one-half acre in size may be granted relief from achieving the range of densities required by this chapter if they are able to demonstrate that it is not practical to achieve required densities while also satisfying infrastructure and environmental protection requirements. iii. The City may authorize an increase in allowable density for those uses such as Complete Life Care Retirement Communities that typically include shared living and dining spaces Minimum lot width. Minimum lot width is as follows: A. 50 feet Maximum building height. Maximum building height is as follows: A. Fifty feet for those structures set back at least twenty feet from Single Family zones. B. Thirty-five feet for those structures set back less than twenty feet from Single Family zones Setbacks and lot coverage. Setbacks and lot coverage are as follows: A. Setbacks. 1. Front: 20 feet from primary frontage street; front setbacks from interior streets may be reduced to 10 when it can be demonstrated that utilities can effectively serve the site and that sight visibility for motorists and pedestrians is not impaired; 2. Rear: eight feet; Page 6 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

7 3. Sides: eight feet; 4. Zero-foot side and rear yard setbacks may be allowed in this zone; provided, that: i. Adjoining lots must also be within the RMM zone; ii. A recorded subdivision and/or a recorded statement of mutual consent between property owners must clearly state that zero-foot side setbacks may be considered; iii. Proof of recorded subdivisions or consent agreements must be provided upon application for development approvals. 2. Lot coverage (maximum): None Parking. Parking is determined by use. For specific regulations on parking, refer to Chapter FMC Accessory building and use regulations. Accessory building and use regulations are as follows: For specific regulations on accessory buildings or uses, refer to FMC Screening and landscaping requirements. Screening and landscaping requirements are as followsper Chapter FMC. However, this chapter seeks to emphasize the use of screening and landscaping as part of overall site and architectural design. Screening and landscaping shall be incorporated with initial site and architectural design concepts to the greatest extent practical. : For specific regulations on screening and landscaping, refer to Chapter FMC Recreation facilities. All multifamily developments shall be subject to the provisions of the City s Parks, Recreation and Trails Master Plan Design Requirements Design Process. Page 7 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

8 A. The City of Ferndale has identified the following prescriptive design methods of residential construction. Unless otherwise noted, each of these methods may be utilized on a variety of housing forms and is not limited to the specific housing form shown. B. Provided that the applicant can demonstrate to the satisfaction of the Community Development Director that the basic goals associated with each design have been met, the application may be approved administratively. C. Should the applicant propose an alternative design, or if either the applicant or the Community Development Director believe that the design does not address the basic goals associated with a specific design, the Design Review Committee established by FMC XXXX shall be convened. D. When evaluating designs, City Staff shall seek to verify that the following goals have been achieved: 1. Overall design and design elements are functional and are of a sufficient size, type and location where they could be reasonably used for their intended purpose. 2. Overall design and design elements contribute to safety, provide recreation opportunities onsite or provide reasonable connectivity to public recreation opportunities offsite. 3. The development is comprehensively designed in a manner that places landscaping, infrastructure, and buildings in logical and efficient locations. 4. The maintenance of sites and individual units can be accomplished in a cost effective manner for the reasonable lifespan of the development, which does not substantially increase the cost of living FMC X.XX Design Intent. A. The intent of this section is to provide applicants within the RMM zone significant flexibility in design while establishing basic mandatory parameters (or goals) that must be adhered to. The prescriptive designs included in this chapter are intended as reference points, and the City has intentionally avoided establishing design requirements which depend upon a specific number or type of design elements (i.e. minimum or maximum roof pitch angles, maximum façade areas, etc.), in order to ensure that all design elements that are proposed are functional. B. Compliance with the design requirements described below are mandatory; however, the inclusion of specific design elements may vary from project to project based on the overall design concept proposed by the applicant. Images included in this chapter are intended as examples only, and shall not be interpreted as a design template. Page 8 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

9 C. In evaluating design compliance, City staff shall consider project narratives and proposed construction documents provided by the applicant which describe in detail the approach the applicant proposes to achieve the standards of this section. In those cases when the applicant believes that it is impossible or impractical to achieve full compliance, the applicant shall be required to demonstrate, in writing, how compliance cannot be achieved and to propose alternatives that meet the purpose and intent statement of this chapter, as well as the housing goals and policies contained in the Housing Element of the Ferndale Comprehensive Plan. As per Section XXX of this chapter, a Design Review Committee may be convened to evaluate proposals that deviate from the design requirements of this chapter. 1. In evaluating design compliance, the neither the City or a Design Review Committee shall consider arguments that design features or amenities should be minimized or eliminated in order to achieve required densities. 2. In evaluating design compliance, neither the City or a Design Review Committee shall consider arguments to reduce essential infrastructure, environmental protection, or parking when the reduction or elimination of such elements could result in increased impacts to public infrastructure or the environment, or when City staff believes that there is a high likelihood that reduction of these elements would shift impacts to other private properties. D. In general, unusable or false artificial design elements such as false windows, false porches, false fronts, and similar approaches intended only to gain compliance with the code should not be utilized. However, nothing in this chapter shall be interpreted to mean that such elements are to be prohibited in all cases. FMC X.XX. Building Design. A. Elements Common to All Designs. Residential structures within the RMM zone shall utilize traditional residential design in order to accomplish the following: 1. Incorporate structural design and materials that reduce the overall cost of living through conservation, durability, and/or cost-effective replacement. 2. Establish close engagement with both frontage and interior streets via highly visible front porches, front steps within ten feet of sidewalks, parking and garages within the building envelope or at the rear of the primary building, and prominent street trees along frontage streets. Page 9 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

10 3. The applicant shall consider incorporating architectural and landscape lighting within the development in order to accentuate architectural features, safety, and a sense of place during evening hours. 4. Nothing in this chapter shall prohibit the development of more than one identical building within the same project. However, the applicant shall incorporate variations to color, materials, entryways, alignment, and/or other methods in order to create variation between structures within the development. 5. In order to minimize the appearance of large structures that overwhelm the streetscape, the applicant shall propose a mix of colors and building materials, shall emphasize entryways and porches at street level, and shall incorporate landscaping into the overall design. 6. The appearance of long exterior balconies or corridors shall be minimized to the greatest extent practical. Page 10 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

11 B. Traditional Multifamily Design. The traditional multifamily design model applies directly to multifamily developments consisting of between two and eight units per building, and may be from two to four stories in height. The traditional design is typified by peaked roofs or varied roof pitches, porches, balconies, and windows facing the street. As the RMM zone anticipates that multiple buildings will be constructed in one development, a variety of housing design buildings or façade treatments are required. Page 11 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

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13 C. Residential Townhouse Page 13 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

14 The Residential Townhouse design model applies to both single family attached and multifamily development, where three or more separate residences sharing common walls are arranged on what is typically a linear fashion along a fronting street. Density typically ranges from twelve to twenty units per acre. Depending upon the specific development the individual units may reside on one shared property or may be on separate properties that can be purchased and sold. Townhouses may be designed to reflect traditional single family elements, to reflect urban row house design which emphasizes vertical elements, or may utilize a combination of approaches. In Ferndale, particular emphasis is placed on external articulation in order to clearly define a separation between dwelling units as well as providing visual interest through color or material changes. A recurring pattern of styles is generally discouraged. Due to the relatively narrow facades that are typical in townhouse design, front-facing garages are also discouraged, or should be minimized. Townhouse designers are also expected to consider provisions for usable open space associated with each unit, or shared between units. Page 14 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

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17 D. Mid-Rise Multifamily Design Mid-Rise multifamily design consists of five or more units per building, generally ranging from three to five stories in height, and sometimes including a portion of, or all required parking within the footprint of the structure. Shared entryways to the building are typically provided, and are given prominent emphasis. The relative size and massing of mid-rise multifamily developments is broken up through articulation, balconies, large windows, and color or material changes. Exterior walkways along the first floor are generally discouraged in order to avoid styles commonly associated with motel architecture. Landscaping appropriate to the size and scale of the building is required, and landscaping such as living walls, trellises, and similar may be utilized to emphasize and soften vertical elements. Due to the nature of the development, which tends to consolidate residential units into one or more vertically-oriented buildings with a limited number of entries, designers shall provide landscaping necessary to minimize the view of large parking lots from the street or adjacent properties. Page 17 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

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19 E. High Density Single Family The High Density Single Family design approach meets the density requirements of other residential uses in the zone while preserving the independence gained from detached or attached single family housing. In general, individual residential units are relatively small and rely on shared open space rather than large front, side, or rear yards. Shared infrastructure such as driveways or parking lots further reduces the overall footprint of high-density single family design. The primary objective of this design approach is not to promote small or tiny houses, although such developments may be permitted when integrated with other housing designs. The high density single family design departs from townhouse design by allowing non-linear attached development. Page 19 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

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21 F. High Efficiency Multifamily The high efficiency multifamily approach is very similar to the mid-rise multifamily approach in terms of design styles and the overall appearance of buildings and site design. The high-efficiency design approach results from the fact that the majority of units are designed for one or two-person occupancy, thus resulting in potential infrastructure reductions. However, while the per-unit costs of infrastructure and permitting may be reduced, no reduction in design or material quality will be considered. Page 21 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

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23 B. Site Design. 1. Developments within the RMM zone will generally be created from parcels that are large enough to accommodate required infrastructure, fronting and/or interior streets, landscaping, open spaces, and one or more residential structures. Substantial flexibility in setbacks, lots sizes, and lot coverage is provided in order for the applicant to comprehensively design a development which meets the following requirements: 2. Required parking spaces for residents must be distributed throughout the development in order to minimize the appearance of consolidated parking lots and to increase convenience and safety for residents. 3. Building footprints and/or individual building lots, together with identified amenities and open spaces, shall be identified in primary approval documents, and efforts shall be made to ensure all residents are within close proximity to these shared amenities. 4. Residential multifamily developments must be located in close proximity to public parks, trails, or other open space so as to provide active recreation opportunities to youth who may reside in the development. a. The applicant shall consider the inclusion of amenities such as sport courts, community gardens, and open spaces. b. When a development is not within ¼ mile of a public trail or park, the development shall be required to establish at least ¼ acre of active open space. 5. Public streets in developments within the RMM zone shall comply with City Development Standards for construction and dimensional requirements, unless variances are granted for additional flexibility. In some cases, private streets that serve only the development may be established, and may be provided greater variability, provided that easements for City utilities and emergency access provisions have been incorporated. Page 23 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

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25 C. Landscaping. The City of Ferndale recognizes that the establishment and ongoing maintenance of mature landscaping that acts as a compliment to the built environment will significantly enhance the livability of a development, as well as its general appearance. All developments approved in compliance with this zone shall be required to establish landscaping throughout the development. All applicants shall be required to submit a landscaping plan at the time of Site Plan Review which addresses each of the following elements: 1. Minimizing the appearance of large parking lots, waste receptacles, and other required infrastructure. 2. Enhancing architectural features of structure(s) within the development. 3. Emphasizing and softening the appearance of the development from adjacent streets. 4. Creating or maintaining a buffer between the development and adjacent incompatible land uses. 5. Softening of amenities, parks, and trail spaces. Page 25 of 27 CITY OF FERNDALE PLANNING COMMISSION RMM MULTIFAMILY ZONING WORKSHOP

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