Project Scope: A targeted amendment to the regulations for building bulk/height in the R-2 zones. Objectives: Allow more housing opportunities in the R-2A, R-2D, and R-2M zones, while ensuring the height and scale of new development complements existing neighborhoods: Replace the 2.5-story construction limit with a more flexible standard for building size; Reduce the height exceptions for stairwell and elevator access enclosures; and Mitigate 3-story building design where abutting neighboring streets and properties. Status: Arose from comments by builders, designers, and neighborhoods; created by a team. One of a group of Anchorage 2040 Land Use Plan actions re: compact infill housing. Previously a community discussion draft; current draft is now a public hearing draft. Open House Presentation - December 11, 2018 with some illustrations clarified and enhanced on 12-21-2018. 1
R-2A, R-2D, and R-2M Zones Mixed-income, mixed-housing neighborhoods. Accommodate a range of low-rise housing types (shown in red-dashed box below). All of these housing types fit into a cohesive, house-scale neighborhood. 2
Where are R-2A, R-2D, and R-2M Zones? Distributed across the Bowl. > 1/3 of urban residential zone land. > 30,000 properties. Primarily built-up neighborhoods 3
Housing Capacity of R-2 Zones Approx. 20% of the 2040 Plan s forecast housing capacity in the Bowl. Focus on compact housing structure types, for which demand is greater than land capacity. Housing capacity is infill and redevelopment lots within built-up neighborhoods. R-2 Focus 4
Anchorage 2040 Goals and Policies set the direction: 2040 Goals 2, 4, and even 7 complement each other. Does not prioritize goals over each other. Goal 2 2040 seeks actions that bring the goals together, and carry out all the policies. Goal 4 Goal 7 5
Proposal Arises from Builder, Architect, and Neighborhood Consultations Builders and designers requested amending 2.5-story limit: 2.5-story limit constrains design options Harder for larger lots in R-2M zone to fit the full number of allowed units 2.5-story limit does not necessarily protect neighbors Concerns from neighborhoods and designers: Larger and taller new housing units on small infill lots can impact: Neighborhood character Livability on neighboring lots (sunlight access, privacy) Affordable housing stock (replacement of existing units with large, expensive units) Pre-consultations with a small group of expert builders and architects in June/July: Suggested exempting large sites from 2.5-story limit Suggested preference for a simpler FAR standard over 2.5-story limit Architects concerned about impacts of large, 3-story housing built on spec 6
Public Comments about the 9-27-2018 Community Discussion Draft About the Replacement of 2.5-story Height Limitation with FAR Limitations: Simply Delete the 2.5-story limit Retain the 2.5-story limit in Traditional Neighborhoods or on Smaller Lots Address Sunlight Shadowing Impacts before Replacing 2.5-story Limit Determine the Potential Economic and Housing Impacts before Imposing FAR Limits Increase the Proposed Maximum FARs Clarify the Measurement of a Home s Gross Floor Area, its FAR, and FAR Exemptions Make Sure the Muni has the Needed Expertise to Administer FARs Increase / Decrease the Exemptions for Detached Accessory Structures About the Revisions to Height Exceptions for Rooftop Appurtenances: Reduce the height exemption for elevator enclosures to five feet Simplify, relax, and/or allow administrative variances from the reduced height exceptions 7
More Public Comments about 9-27-2018 Community Discussion Draft About the Proposed Standards to Mitigate 3-Story Buildings: Retain the 2.5-story based limitation on building length in traditional neighborhoods Increase or delete the proposed maximum building length Do not require building articulation where not necessary to protect neighboring lots Require upper floor step-backs from neighboring properties Apply bldg. articulation standards consistently to all buildings in multi-unit developments About other aspects of infill housing / neighborhood compatibility: More strongly restrict front driveways and garages in traditional neighborhoods Require more northern climate design features (e.g., daylighting for proposed apt. units) Accommodate the need and desire for more housing near downtown Provide a grace period after adoption during which builders may select old regulations Provide more means of administrative variances/flexibility 8
List of Public Hearing Draft Materials for Public Review Proposed Code Changes: Draft Adopting Ordinance Draft Zoning Code Amendment Language ( Exhibit B ) Supporting Information*: Staff Report and Analysis Summary ( Exhibit A ) Policy Guidance from the Comprehensive Plan ( Exhibit D ) Public Comments Received ( Exhibit E ) Comment/Issue-Response Table ( Exhibit F ) * Supporting Information Materials are being posted on project web page as they are completed. Note: The information on this slide was presented verbally on 12-11-2018. This slide was added on 12-21-2018. 9
Public Hearing Draft Responds to Approximately 40 Issues Raised by Public Changes from Sept. 27 Community Discussion Draft (refers to page numbers in Public Hearing Draft) 1. Page 1, the Minor Modifications process is made available for maximum FAR requirements. 2. Page 2, maximum building length requirement for taller buildings is now based on height in feet rather than number of stories, and is increased from 125 feet to 150 feet (i.e., changed back to current code). 3. Page 2, building articulation requirements no longer apply to duplexes, and wall plane modulation is now required on only one elevation. 4. Page 2, building articulation applies when abutting any residential-zoned property, not just when abutting an existing residence. 5. Page 2, measurement of maximum height of stairs/main entry may be from either grade plane or finished grade at applicant s choice. 6. Page 3, Single-family home FAR is increased from 0.45 to 0.50 FAR in R-2A, R-2D, and R-2M districts. 7. Page 3, Two-family (duplex) and single-family attached dwelling FAR is increased from 0.50 to 0.60 in the R-2A; and increased from 0.60 to 0.65 in the R-2M district. 8. Page 3, Townhouse FAR is increased from 0.70 to 0.90 FAR in R-2M district. 9. Page 3, Multifamily FAR is increased from 0.70 to 0.80 FAR in R-2M district. 10. Page 4, line 28, the exempted height of stairwells is increased from 10 to 11 feet in R-1 and R-2 districts. 11. Page 4, the max exempted height of parapets is changed from 1 foot in R-1 and R-2 zones and 4 feet in other zones to 3 feet in all zones. 12. Page 4, the maximum exempted height of railings is no longer limited to 5 feet, and open/transparency requirement clarified. 13. Page 5, line 6, the minimum roof pitch for dormers exempted from height limits is relaxed to 2:12. 14. Page 6, a solar access step-back requirement is added along northerly lot lines abutting other homes. 15. Page 7, line 17, the FAR exemption for crawl spaces is deleted as crawl spaces have never been counted as part of gross floor area. 16. Page 7, line 19, the FAR exemption for accessory structures is increased from 0.1 to 0.15, to correspond to the max allowed size of ADUs. 17. Page 7, lines 21-24, an FAR exemption is added to allow pre-existing homes and duplexes one addition that exceeds the maximum FAR. 18. Page 8, Alternative Compliance is made available for R-2M District-specific Standards for 3-story building articulation and max stair height. 19. Page 8, Alternative Equivalent Compliance is made available as a more flexible alternative to the solar access step-back proposed on page 6. 20. Page 11, The revised definition of half story is formatted differently, and the height of a sidewall on a half story is reduced from 5 to 4 feet. 21. Page 11, a definition related to the railings provision (see item #11 above) is added to clarify open or transparent railing. 10
What the Proposal Does Not Do Change the 30-foot height limit, 40% maximum lot coverage, or minimum setbacks. Rezone any property. Change how many housing units or what type of housing is allowed by the district. Make any existing, legally constructed or permitted building a nonconforming structure as a result of the proposed FAR building size limits. Apply the proposed FAR or district-specific design amendments to Chugiak-Eagle River. Address other site design regulations such as parking, driveways, or landscaping. 11
Related Anchorage 2040 Implementation Projects Anchorage 2040 Land Use Plan calls for improving land use regulations for infill housing. Draft code amendments for these projects will come forward separately, each on its own schedule: Completed 1. Unit Lot Subdivisions (2040 Action 4-17) 2. Accessory Dwelling Units (2040 Action 4-7) 3. R-3A Mixed-use Residential Zone (2040 Action 2-6) Over-parked Apartments Upcoming 1. Parking Reductions By-right (2040 Action 4-3) 2. R-4A Mixed-use Zone (2040 Actions 3-1 and 3-5) 3. Residential Driveways for Compact Housing (Action 4-6) 4. Reinvestment Focus Areas (RFAs) (Actions 2-1 to 2-4) Townhouse Driveway 5. Additional Housing Units by Design (2040 Action 4-4) Before After: More Units 12
1. Replace 2.5-story Limitation. Replace the 2.5-story construction limit with a more flexible standard for the size of new housing in proportion to the size of the lot, using a floor area ratio (FAR). Maximum floor space: 5,000 square feet Lot size: 10,000 square feet Two example lot sizes for a maximum FAR of 0.5. Maximum floor space: 3,500 square feet Lot size: 7,000 square feet 13
What replacing 2.5-story limit with FAR looks like in code: 14
FAR Features: More Flexible Builder/architect has discretion in building siting, style, and design. Design can respond to site conditions or a neighbor (e.g., backyard sunlight). Allows any 3-story massing configuration up to the 30 foot limit. Easier to fit all of the housing units allowed by the district, especially on larger sites. Allowed floor area increases with lot size. Amount of floor area also increases for housing types with more dwelling units. Three possible configurations of equally sized structures, all with the same floor area ratio (FAR). FAR closely links to building height and coverage. Housing can either be taller or more spread, but not both. 15
FAR Features: Simpler than 2.5-story Limit Simple tool for keeping the bulk of large structures in proportion to the size of the lot. A single number: a ratio of building floor space to the area of the lot. Divide the total gross floor area of the building(s) by the area of the lot. 16
FAR Features: More Familiar Used already in Title 21 multifamily and commercial zones for many years. Used in Girdwood gr-1, 2, 3, 4 single-family, two-family, and multi-family zones. Has worked fine in by-right, over-the-counter administrative reviews. More compatible than 2.5-story limit with the rest of Title 21 land use regulations. Square footage more familiar than ½ stories to building and design industry. Proposed R-2 amendment and its accompanying info includes further clarifications 17
FAR Features: Allows for Most Construction Sizes Most housing typically not built to the maximum size. 2500 Number for Each FAR Value 6000 Proposed FARs exceed most recent construction sizes. Allows for the largest mansion units on larger lots. 2000 1500 5000 4000 3000 1000 2000 500 1000 0 0.0 0.1 0.2 0.3 0.4 0.5 0.6 0.7 0.8 0.9 1.0 0 Existing Floor Area Ratios for Residential Structures in R-2M Zone Pre-1970 Number All Years 7,000 Sq. Ft. Lots 18
FAR Features: Allowed Housing Structure Size increases with Lot Size Accommodates the Number of Housing Units and Housing Types Allowed in R-2 Zones Note: Graph depiction of common lot size ranges for single- and two-family was clarified on 12-21-2018. 19
FAR Features: Respects Neighborhood Scale Most housing typically is not built to the maximum size. Proposed FARs allows taller maximum building height but less max. building envelope. Note: This illustration was clarified and enhanced on 12-21-2018. 7,000 Sq. Ft. Lots 20
FAR Features: Exempts Non-bulky Floor-spaces from FAR Maximums Daylight basements. Attic and half-story spaces with ceiling heights less than 7 6. Accessory structures (garages, ADUs, etc.) up to 0.15 FAR exempted. One addition to an existing single- or two-family home 400 sq. ft. or 0.10 FAR exempted. Note: This illustration was clarified and enhanced on 12-21-2018. 21
2. Revise Height Exceptions for Rooftop Appurtenances in R-1/R-2 Zones a. Reduce the maximum exempted height for rooftop access stairwells, mechanical penthouses, and elevator enclosures: Allow rooftop access enclosures on top of 3-story, 30-foot tall structures. But minimize the potential bulk, height, shadow impacts of rooftop enclosures. Base new minimum standards on industry expert consultations. Proposal: Reduce elevator enclosure exemption from 25 to 16 feet. Proposal: Reduce stairwell and mechanical enclosure exemption from 15 to 11 feet. 22
2. Revise Height Exceptions for Rooftop Appurtenances in R-1/R-2 Zones b. Reduce the height exception for solid parapet walls while continuing to allow railings to exceed the height limit. Reduce solid parapet wall height while allowing needed clearance above roof surface. Reduce height exemption for solid parapet walls from 4 feet to 3 feet. Allow open and transparent railings to exceed by more than 3 feet. 23
2. Revise Height Exceptions for Rooftop Appurtenances in R-1/R-2 Zones c. Exempt small dormers from building height measurement. Dormer increases building height as measured by Title 21. Currently no height exemption for dormers, a disincentive for attic spaces. Proposal: Exempt dormers with clear rules to ensure they stay a secondary roof mass. Provides certainty for builders. 24
3. Mitigate 3-story building design a. Re-state the limitation on length of 2.5-story buildings in terms of feet not stories. Current: Maximum 150 feet for building elevation 2.5 stories in height. Proposal: Maximum 150 feet for building greater than 25 feet height. 25
3. Mitigate 3-story building design b. Solar access step-back for 3-story structures abutting neighboring residences. Responds to a primary neighborhood concern with deleting 2.5-story limit. Applies only along side lot line abutting another residential lot. Intended to retain equivalent level of solar access protection as under 2.5-story limit. Exemptions and alternative equivalent compliance. 26
3. Mitigate 3-story building design c. New R-2M District-specific Standards for 3-story, multi-unit structures abutting neighboring streets and properties. Responds to neighborhood concerns and architect consultations comments. Apply an existing building articulation menu from Title 21 residential standards. Limit the height of exterior main entry stairs to the first floor (6 above grade). Alternative equivalent compliance available. 27
Building Facades Subject to Building Articulation Menu Requirement Facades Already Subject under Current Code Additional Facades under R-2 Zones Amendment Facades Exempted Due to Topography or Vegetation under R-2 Amendment 2-unit 2-unit 2-unit 2-unit 2-unit Zion Court (Lake Otis Dr.) Loussac Manor (A and C St.) Not considered to be street-facing building elevations by Title 21 because building grade level is eight feet or more below grade plane of the adjoining street pavement. Note: This slide was clarified with enhancements on 12-21-2018. 28
Administrative Adjustments and Flexibility: Minor Modifications: Allows 5% administrative adjustment to some dimensional requirements. FAR added to the list of code requirements that may have 5% adjustment. Alternative Equivalent Compliance (AEC): Allows approval of alternative means and methods for meeting intent of requirements. R-2M district-specific standards. Solar access step-back. Note: This slide was clarified with enhancements on 12-21-2018. 29
Project Objectives: Allow more housing opportunities in the R-2A, R-2D, and R-2M zones, while ensuring the height and scale of new development complements existing neighborhoods: Replace the 2.5-story construction limit with a more flexible standard for building size; Reduce the height exceptions for stairwell and elevator access enclosures; and Mitigate 3-story building design where abutting neighboring streets and properties. Summary of Key Features: Addresses the needs and impacts of infill housing in built-up neighborhoods. FAR is a more flexible and familiar than 2.5-story limit. Proposed FARs allow for most construction sizes. Allows for rooftop access and rooftop decks on 3-story (30-foot) buildings. R-2M District-specific standards to mitigate 3-stories and reduce neighbor conflicts. 30
Next Steps: Exhibits and Information will Appear on Project Website. Looking for Public Feedback on the Public Hearing Draft. Public Hearing at Planning and Zoning Commission (PZC) on March 4, 2019. PZC Recommended Draft will then be forwarded to the Assembly. The Public will have an opportunity for testimony on the PZC Recommended Draft. The Assembly may amend the PZC Recommended Draft before they vote to adopt it. Step 1: Community Discussion Draft Step 2: Public Hearing Draft to PZC Step 3: PZC Draft to Assembly. Step 1. Fall 2018 Discussion Draft 2. Winter 2018-19 Public Hearing Draft 3. Spring 2019 Final Draft to Assembly Public Involvement Initial Discussion Draft code changes were for released public review on September 27, for a public feedback period that ended in early November. Public Hearing Draft code changes available for public review December 10, and a public hearing at Planning Commission is scheduled for March 4. PZC Recommended Draft code changes available for public review prior to Assembly hearing, deliberations, and adoption. Note: This slide was updated on 1-25-19 to reflect that the PZC public hearing date was changed to March 4, 2019. 31
Resource Slides Hardcopies of the following visuals and information were displayed at the December 11, 2018 Open House. 32
R-2 Zones Lot Sizes 63% of all R-2 lots are less than 8,500 sq. ft. 92% of all R-2 lots are less than 14,000 sq. ft. 4% of all R-2 lots are greater than 21,000 sq. ft. There is no threshold lot size for a 2.5-story limit: All lot sizes are mixed into neighborhoods. Smaller lots can be aggregated into bigger lots. Larger lots can be divided into smaller lots. 33
Shows maximum allowed size of a home on 7,000 square foot lot. Max. home size would increase on larger lots. Proposed maximum accommodates typical recent home sizes. Note: This illustration was not complete by 12-11 Open House so could not be displayed. 34
Shows R-2M maximum allowed size of a duplex on 7,000 square foot lot. Allowed duplex size would increase on larger lots. Proposed maximum accommodates most duplex unit sizes. Note: This illustration is clarified and enhanced from the version displayed on 12-11. 35
Max. building size and number of units would increase on larger lots. Proposed maximum accommodates typical recent unit sizes. Proposed max. allows for 3-story structures, as shown in green. Allowed building design and configurations can vary from what is shown. Note: This illustration was not complete by 12-11 Open House so could not be displayed. 36
Shadow Analysis of Maximum Allowed Duplex Sizes, R-2M Zone Sunlight Shadowing Impacts on Abutting Lots at Equinox (March & September 21: Existing Older Home Proposed Max. Duplex Size (Half-story under pitched roof) Current Code Max. Duplex Size (Typical ceiling heights, 2.5-story limit) Proposed Max. Duplex Size (3-story, pitched roof design) Note: This illustration was clarified and enhanced on 12-21-2018. 37
Shadow Analysis of Maximum Allowed Duplex Sizes, R-2M Zone: 3-story Flat Roof Design Sunlight Shadowing Impacts on Abutting Lots at Equinox (March & September 21: Existing Older Home Proposed Max. Duplex Size (Half-story under pitched roof) Current Code Max. Duplex Size (Typical ceiling heights, 2.5-story limit) Proposed Max. Duplex Size (3-story, flat rooftop deck design) Note: This illustration was not complete by 12-11 Open House so could not be displayed. 38
Existing FARs for Residential Structures in R-2A Zone By Use Type, Lot Size, and Era 39
Existing FARs for Residential Structures in R-2D Zone By Use Type, Lot Size, and Era 40
Existing FARs for Residential Structures in R-2M Zone By Use Type, Lot Size, and Era 41