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HomeMy WebLinkAboutPC Agenda Packet 2022-12-28 AGENDA PLANNING COMMISSION Hybrid Meeting – In-Person and Virtual City Council Chambers: 321 East 5th Street, Port Angeles, WA 98362 Attend Virtual Meeting Here: https://www.cityofpa.us/984/Live-Virtual-Meetings December 28, 2022 6:00 p.m. I. CALL TO ORDER II. ROLL CALL III. PUBLIC COMMENT IV. APPROVAL OF MINUTES Minutes of the December 14, 2022 Regular Meeting V. DISCUSSION 1. Pursuing Housing for All – Title 17 Code Amendment Process Continuation of the Port Angeles Municipal Code (PAMC) update process. Review and discussion of the December 28, 2022, Staff Memorandum prioritizing recommended changes to the PAMC based on Planning Commission feedback. VI. STAFF UPDATES VII. REPORTS OF COMMISSION MEMBERS VIII. ADJOURNMENT December 28, 2022 Planning Commission Agenda Packet Page 1 of 23 Minutes from Previous Meeting December 14, 2022 Planning Commission Agenda Packet Page 2 of 18 December 28, 2022 Planning Commission Agenda Packet Page 2 of 23 MINUTES PLANNING COMMISSION Hybrid Meeting – In Person and Virtual City Council Chambers: 321 E 5th Street, Port Angeles, Washington 98362 December 14, 2022 6:00 p.m. REGULAR MEETING CALL TO ORDER Chair Stanley opened the regular meeting at 6:04 P.M. ROLL CALL Commissioners Present: Benjamin Stanley (Chair) Andrew Schwab (Vice Chair) Tammy Dziadek Marolee Smith James Taylor Commissioners Absent: Richie Ahuja, Colin Young - excused City Staff Present: Ben Braudrick (Senior Planner) Holden Fleming (Housing Coordinator) Norman Gollub (Interim Director of Community and Economic Development) Zach Trevino (Assistant Planner) Public Present: Brian M. PUBLIC COMMENT Chair Stanley opened the meeting to public comment. Brian M. provided comment praising City Councilmember Mike French for his service and encouraging Chair Stanley and Commissioner Young to apply for the open position on the City Council. Chair Stanley closed the meeting to public comment. APPROVAL OF MINUTES Vice Chair Schwab moved to approve the minutes from the October 26, 2022 regular meeting of the Planning Commission. The motion was seconded and passed by unanimous consent (5-0). DISCUSSION ITEM 1. Housing for All Code Amendment Process December 28, 2022 Planning Commission Agenda Packet Page 3 of 23 Planning Commission Minutes December 14, 2022 Page 2 Planner Braudrick introduced the discussion item, providing an overview of the staff memorandum included in the agenda packet. He noted that several commissioners provided comments in response to the memorandum, which was distributed for their review and input prior to the meeting. Each commissioner had been asked to identify five suggestions from the list in the memorandum that they feel should be prioritized. Planner Braudrick explained each of the six criteria that were established to serve as the foundation of the Housing for All code amendment process, which will result in amendments to the Port Angeles Municipal Code (PAMC) that reduce barriers to housing production. He concluded his introduction by explaining that the purpose of this Planning Commission meeting is to narrow down the suggestions in the memorandum to a prioritized list that can be presented to the public at a workshop on January 25th. The Commission’s discussion of the memorandum began with an overview of the written comments that had been provided in advance of the meeting. Commissioners Smith and Dziadek each explained the comments they had submitted. Commissioner Young’s comments were acknowledged. Following the presentation of individual comments submitted by Commissioners, the Commission conducted a review of the list of suggestions contained in the memorandum. This involved a discussion of each bulleted item contained in the suggested “Staff Code Changes” list. The Commission’s discussion followed the order of the bulleted list in the memorandum. The full discussion of each item is available in the recording of the Planning Commission meeting. Chair Stanley clarified that staff would proceed to take a more detailed look at the items the Commission identifies as priority PAMC changes following this discussion. Following the Commission’s discussion of each of the 25 bulleted items in the memorandum, staff requested that the Commissioners identify which items are most important in their perspective. This will allow staff to provide a prioritized list of suggested PAMC amendments, based on the Commission’s feedback, for consideration at the next regular Planning Commission meeting. Chair Stanley identified the following items as priority changes: 1. Build residential capacity in commercial zones and structures to the greatest extent possible by allowing accessory dwelling units in commercial zones. 2. Allow for commercial to residential conversion on the ground floor of structures in the Central Business District (CBD). 3. Allow a detached accessory dwelling unit (ADU) to be constructed accessory to a duplex on one lot in all residential zones where duplexes are allowed by right. 4. Creation of a new section of Title 17 PAMC that facilitates the establishment of temporary housing, including through occupancy of recreational vehicles. 5. Enable a City-led development authority and land bank through which the City could act as a developer and then sell developed housing to the private sector. Vice Chair Schwab identified the following items as priority changes: December 28, 2022 Planning Commission Agenda Packet Page 4 of 23 Planning Commission Minutes December 14, 2022 Page 3 1. Fix errors and clarify terminology in the PAMC to ensure consistency and uniformity of regulations. These changes were referred to as “housekeeping” items. 2. Disincentive single-household dwelling construction by providing a fee discount or other incentive for a developer to construct multi-family housing instead. 3. Allow the establishment of ADUs in more locations through an easier approval process. 4. Eliminate maximum bedroom requirements for ADUs. 5. Creation of a new section of Title 17 PAMC that facilitates the establishment of temporary housing, including through occupancy of recreational vehicles. Commissioner Smith identified the following items as priority changes: 1. Creation of a new section of Title 17 PAMC that facilitates the establishment of temporary housing, including through occupancy of recreational vehicles. 2. Allow a detached accessory dwelling unit (ADU) to be constructed accessory to a duplex on one lot in all residential zones where duplexes are allowed by right. 3. Eliminate maximum bedroom requirements for ADUs. 4. Codify pre-application requests with a firm timeline and deliverable date. 5. Define “apartment” and add as a permitted use in all commercial zones. 6. Exempt apartments located above businesses from residential density requirements. Commissioner Dziadek explained that she needs more time to choose the items she believes are priorities. Following the identification of priority items by each Commissioner, Chair Stanley closed the discussion and confirmed that the Commission will be continuing the PAMC amendment process at subsequent meetings. STAFF UPDATES City staff provided several updates to the Commission, as follows: • Planner Braudrick noted that Commissioner Taylor is new to the Planning Commission. He expressed appreciation for Commissioner Taylor’s willingness to participate and contribute to the Commission’s work. • The City was able to secure additional funding and will soon enter into a contract with a contractor for completion of Phase I of the Race Street Improvement Project. Construction is anticipated to begin in February. • The City has been selected by the Washington Department of Commerce as one of three communities in the State to participate in the Department’s Climate Pilot Program. The program will aid the City in integrating climate action planning and the Climate Resiliency Plan into the Comprehensive Plan during the next update in June December 28, 2022 Planning Commission Agenda Packet Page 5 of 23 Planning Commission Minutes December 14, 2022 Page 4 of 2023. On December 15th, the City will begin the process to conduct a limited sea level rise vulnerability assessment. A workshop will occur with the Planning Commission in February as part of this process. • Planner Fleming has been participating in Housing Solution Committee meetings, which the Commissioners are encouraged to attend. • Staff has begun developing promotional materials for the Housing for All code amendment process discussed at this Commission meeting. These will be an important part of a larger public engagement effort that will involve the Commission. REPORTS OF COMMISSION MEMBERS • Vice Chair Schwab announced that the scaffolding has been removed from the Lee Plaza building in the Central Business District. He also noted that he is currently reading a book titled The Color of Law by Richard Rothstein. ADJOURNMENT Vice Chair Schwab moved to adjourn the meeting. The motion was seconded and passed unanimously (5-0). The meeting adjourned at 8:46 p.m. Zach Trevino, Secretary Ben Stanley, Chair MINUTES PREPARED BY: Zach Trevino, Secretary December 28, 2022 Planning Commission Agenda Packet Page 6 of 23 Discussion Items December 14, 2022 Planning Commission Agenda Packet Page 7 of 18 December 28, 2022 Planning Commission Agenda Packet Page 7 of 23 ` MEMORANDUM DATE: December 28, 2022 TO: Port Angeles Planning Commission FROM: Planning Division Staff RE: Pursuing Housing for All Code Update: Priority List of Title 17 Code Changes On December 14, 2022 Planning Staff provided a list of proposed code changes for the Planning Commission to discuss and prioritize. The following memo is a revision of that list incorporating those priorities and what staff has deemed can be feasibly accomplished by the March 31, 2023 deadline. This deadline has been imposed by the Building Residential Capacity legislation of the Growth Management Act (RCW 36.70A.600). Staff has also prepared draft code for Accessory Dwelling Units (ADU’s) and an excerpt of a Planning Advisory Service (PAS) report from the American Planning Association on first floor residential uses in commercial structures. During the December 14th Planning Commission meeting, general consensus was given that reducing the barriers to ADU development is a top priority. There was less consensus on residential uses on the first floor of commercial structures, so staff wanted to present what zoning standards might be used to ensure compatibility with the zone. Staff has placed all the suggested code Title 17 code amendments into four priority categories for code change considerations: Priority, Significant: Planning Commission priorities that will require major changes to code that may include new code sections, increased complexity, design standards, or require evaluation of the changes to ensure there is no cascading “domino” effect, or conflict/connection across multiple sections, chapters, or even titles of the municipal code. Priority, Minor: Planning Commission priorities that provide support for multiple evaluation criteria but may not result in municipal code changes staff considers difficult to insert, edit, or draft. These changes likely have minimal “domino” effects. House Keeping: Changes identified by staff that have made code interpretation difficult or created confusion for the public. These changes are generally minor in nature and have little “domino” effect. Their priority may be less high on the Planning Commission’s scope, but they are related to pursuing housing for all. Priority, Out of Scope: Changes related to pursuing housing for all that were seen as important for the City to review and institute in the future, but were out of scope of this code amendment exercise. The proposed changes are provided individually within six categories. These categories define either how December 28, 2022 Planning Commission Agenda Packet Page 8 of 23 P a g e 2 the existing code is a barrier to housing development, an opportunity to provide greater development flexibility, increase housing density, decrease unnecessary financial burden of existing and developed housing, or ensure housing for all community members. Code as a Barrier to Affordable Housing Development  A major focus of this code revision exercise is to identify where the City’s zoning and building code continues to act as a barrier to the development of affordable and attainable housing. Changes identified under this criterion have been identified as barriers. The goal is to remove these barriers from code while ensuring consistency in regulations remains across individual Titles and Sections. Increasing Flexibility in Zoning Code Provisions  Since 2017 the City of Port Angeles has continued to provide more flexibility in residential uses allowed in residentially focused zones and commercially mixed-use focused zones. This flexibility includes the use itself (whether now allowed outright or by condition) and how the use performs on the site through design standards of setback, height, and bulk standards (how development interacts with adjacent property and the street). Examples of this include allowing duplexes by right and accessory dwelling units as an accessory use in every residentially focused zone and reducing lot size requirements in certain zones. Increasing Housing Density Availability  Housing density has historically been the most significant control segregating districts of residential development. Increasing housing density allows for more affordable and equity housing availability across the community. Zoning is a tool to ensure incompatible uses do not create undue nuisance, burdens, or health impacts to surrounding property owners. Best available science and practice has recently shown that this frame of thought has created a pattern of development across the United States inhibiting affordable residential development, especially “missing-middle” housing that has the ability to easily integrate into historically low-density residential development. The BRC is particularly framed to provide a means to develop missing middle housing and integrate housing density as infill development into existing low density residential zones Reducing the Potential Cost of Development  Development cost not only includes the cost of labor and materials. Cost can also be attributed to the amount of time the development process takes to navigate from property acquisition to an occupiable structure; the required infrastructural improvements required to ensure adequate services and safe occupancy; and restrictive design standards imposed by municipal codes. Municipal codes should not impose a barrier that drives housing costs up in order to cover the cost of development. Streamlining permitting, imposing infrastructural alternatives, and strategically relaxing some design standards are all some ways that municipal codes can assist in reducing housing costs. Ensuring Housing Equity and Availability  Housing is a human right. In order to appropriately ensure housing for all members of the community, municipal code should adequately address the needs of everyone. Best available science and practice has December 28, 2022 Planning Commission Agenda Packet Page 9 of 23 P a g e 3 recognized the faults in requiring strict segregation of certain housing types that can otherwise be reasonably located adjacent to each other. All community members deserve to have access to housing that meets their specific needs at any and all stages in their life. Successfully employed municipal code should act as the framework providing diverse housing construction to support and encourage the realization of this right for everyone. Enabling Local Property Development Through Self Reliance  By amending Title 17 to be more easily read and understood, local property owners will more readily understand development requirements and make choices to maximize the use of their property. Prioritize List of Draft Code Changes Priority, Significant: 1. Creation of temporary housing section of Title 17 with design standards and timelines that also addresses RV’s  The City Council tasked staff and the Planning Commission to develop code to provide City residents the means to create safe temporary housing for all. This includes a permitting process and any standards and requirements to address life/safety issues. The Planning Commission additionally expressed interest in revisiting the proposal to allow a codified permitting process for recreational vehicles on axels to be considered as temporary housing on private property. 2. Allow for alley/street lot subdivision in areas on property with appropriate existing or updated street standards.  Many properties in Port Angeles were developed prior to modern setback standards that restrict the location of the residence towards the center of a building site. Many of these properties are also within the City’s original townsite plat where access to a street and alley are both available. Permitting of an interior lot with street and alley access to subdivide perpendicular to those accesses will allow another means for property owners with historic residences in the far front or rear of the lot to subdivide and develop a new primary residence. Setback standards and frontage definitions will also be evaluated to ensure any subdivision proposal is not disruptive to surrounding neighbors 3. Allow for commercial to residential conversion with design considerations – specific to CBD to allow for residential on ground floor.  Ground floor residential development is currently only available in the rear of a structure within the CBD zone. Vacant storefronts might be used as or converted into housing units as the market allows–either in the interim or permanently–with appropriate design considerations to ensure future inhabitants have adequate privacy and the adjacent streetscape is not disrupted. 4. Create disincentive fee for large single-household dwellings and use that fee for multi-family market subsidy.  A recent article by The New York Times highlighted the national decline of the “starter home” December 28, 2022 Planning Commission Agenda Packet Page 10 of 23 P a g e 4 (homes typically at or below 1400 sq.ft.). Simultaneously, while homes have on average became larger, household sizes became smaller. A disincentive fee targeted at single household dwellings significantly above the average size of Port Angeles homes could help slow this trend while directly supporting the creation of multi-family units. Multi-family units will play an increasingly important role in providing affordable and equitable access to housing in our community as the cost of development and redevelopment rises. The disincentive fee as proposed would function similarly to what other jurisdictions call an Affordable Housing Mitigation Fee. 5. Enable a City-led development authority/land bank (Transfer of Development Rights)  Municipal land banks are typically tasked with addressing issues related to vacant, abandoned and tax-delinquent real property. This includes, but is not limited to, the purchase, rehabilitation, improvement, or sale of properties for the purpose of eliminating blight and returning those properties to productive use. The creation of a municipal land bank would allow for a more direct method of addressing these issues than what is currently feasible as well as aid the City in facilitating future targeted economic development. Similarly, Port Angeles may form a Public Development Authority (PDA) focused on real estate development and management. While these PDAs are typically focused on a singular public development, a broader scope of focus could be possible. Priority, Minor: 1. Reevaluate and revise each residential zone’s purpose statement to reflect the changes provided in the BRC process.  The changes that are being proposed run counter to the R7 zone’s current stated purpose. The zone’s purpose will change to reflect the availability of a number of mixed middle housing types that will now be available through several amendments in the code section. 2. Allow a detached ADU to be constructed accessory to a duplex on one lot in all residential zones where duplexes are allowed by right.  ADUs are an attainable way for a property owner to create affordable housing options in Port Angeles. With soon-to-be developed permit ready ADU plans being made available by the City of Port Angeles, allowing them accessory to all primary housing types will reduce the barrier to their construction and increase affordable housing options. 3. Eliminate bedroom requirements for ADUs Size restriction is enough of a design consideration and control for ADUs to remain subordinate to its primary residence. An increase in the number of bedrooms allows for potentially larger households to occupy an ADU residence. 4. Allow 1 unit per 1,750 sf in the R7 zone.  This change will allow 4 separate primary units on a standard 7000 sf lot, a change that opens the opportunity for a property owner to acquire a multifamily tax exemption. Standards will ensure harmony for surrounding neighboring properties and within a block. December 28, 2022 Planning Commission Agenda Packet Page 11 of 23 P a g e 5 5. Remove maximum per unit requirements for cottage housing developments.  Per unit requirements for cottage housing can be seen as a barrier to housing unit development. Removing this barrier will allow a developer to determine the residential density of their proposal based upon the design standards for cottage housing development. The change allows for creative design within the means of the existing standards. This change does not affect minimum unit per lot development requirements 6. Allowed dwelling types – if building meets IBC standards per WA state, allow it on any property if the design meets infill development standards.  Manufactured homes are an affordable residence type regulated by Washington State Labor and Industries. Double-wide manufactured homes measuring 24X36 sf are the only manufacture housing type allowed in any zone not RTP, Residential Trailer Park zone. There is a social stigma against “single-wide” trailers, and this type of housing is only found as an allowed use in the RTP, Residential Trailer Park zone. The hesitance to allow smaller manufactured housing has to do with its historic design: the height and roofline of the structure, the finished siding materials, the orientation of the door to the street, and the overall number of windows and transparency. But, staff has found that there are manufactured home builders that are producing affordable housing units that do not abide by the stigmas mentioned above. This code change will require the correct licensing from the state that ensures the structure meets all life/safety requirements of the International Building Code and International Residential Code, and it could require some infill residential design standards to ensure correct building and front door orientation, transparency, and screening from adjacent properties. House Keeping: The following proposal are directly related to consistency and clarification of the zoning code: 1. Replace “single-family with “single-household” to provide inclusivity and equity in Title 17  2. Reestablish consistency among all zone titles (“RS-7” replaced with “R7”)  3. The lower residential zones removed the “S” in 20XX. This housekeeping item will ensure this change is reflected throughout the entire title. 4. Add definitions in multiple places to ensure people find term they are looking for. E.g. SEE ______ 5. Identify inconsistency between PAMC titles  6. Refine use charts to avoid conflicts  7. Define “public” in Title 17 so use of terms such as “public buildings” in Section 17.22.110 are clear and consistently applied.  The following proposals are directly related to situations where code has created a barrier to developing housing units: 8. Allow for conversion of accessory structures to housing units in all residential zones regardless of conformity to zoning standards.  9. Exempt apartments above businesses from residential density requirements  10. Allow preexisting single-household dwelling as allowed use in all zones.  December 28, 2022 Planning Commission Agenda Packet Page 12 of 23 P a g e 6 11. Define “apartment” and add as permitted use in all commercial zones.  The following proposals are in direct response to practical use and intent of the form-based code changes of Chapter 17.22: 12. Reevaluate landscaped block frontage standards to required minimum frontage distances.  13. Parking standards – sequential spaces and landscaping. Location of parking.  14. Allowance of deviations from design standards for existing historically significant structures.  Priority, Out of Scope: 1. Codify pre-application requests with a firm timeline and deliverable date.  Preapplication Meeting Requests do not currently have a codified process that provides predictability and guidance to applicants looking to submit an application. This process has been identified as a potential future change due to the consolidated development permit process chapter existing in Title 18 and a cost of services analysis currently taking place that will not be completed until after this amendment is proposed to be adopted. 2. Create Maximum lot sizes in R11 and R9 zones to prevent large lot subdivisions or require a restriction on the plat requiring future subdivision to be at a minimum density.  This code change would prevent single residential units on large lots from being carved out, leaving the large lot open to potential development without future subdivision being possible. This can be due to the frontage available, siting of a future residence, or lack of proper access and utility easements. Large lots are increasingly scarce in Port Angeles, but this process should include a more robust review with the inclusion of a change in subdivision standards in Title 16. 3. Define and allow “corner shop mixed-use structure” on strategic residential intersections.  This code change will require analysis that identifies appropriate intersections for this type of development. The Planning Commission also found that the City should make its focus neighborhood centers and corridors and the downtown for commercial development before expanding the availability of commercial development to traditionally residential-focused zones. Attachments: 1. Draft Updated ADU Design Standard Code 2. Excerpt of PAS Report 472: Converting Storefronts to Housing December 28, 2022 Planning Commission Agenda Packet Page 13 of 23 17.21.020 - Accessory dwelling unit (ADU). SHARE LINK TO SECTIONPRINT SECTIONDOWNLOAD (DOCX) OF SECTIONSEMAIL SECTIONCOMPARE VERSIONS A. Purpose. The purpose of an accessory dwelling unit is to: 1. Add affordable units to existing housing and make housing units available to people who might otherwise have difficulty finding homes within the City. 2. Promote the development of additional housing options in residential neighborhoods that are appropriate for people at a variety of stages of their lives. 3. Provide homeowners with a means of obtaining, through tenants in either the accessory dwelling unit or the principal residence, rental income, companionship, or security. 4.Protect neighborhood stability, property values, and the character of the neighborhood. B. Standards. An ADU, in any zone, must comply with the following development standards: 1. Configuration. An ADU may be located either within, attached to, or detached from a primary structure housing a primary single-household dwelling or duplex. 2. Density. Only one ADU may be created in conjunction with each single-household dwelling or duplex. The ADU must be located on the same zoning lot as the primary structure. Accessory housing which conforms to the standards in this chapter shall not be considered to exceed the allowable density for the lot upon which it is located and shall be considered a residential use which is consistent with the comprehensive plan and zoning designation for the lot. 3. Minimum lot size. An ADU must not be established on any parcel smaller than 3,500 square feet. 4. Maximum unit size. The ADU must not exceed 50 percent of the average gross floor area of all other dwelling units on the lot, not including a detached garage and/or a detached accessory building, or 600 square feet, whichever is larger. 5. Setbacks, height, and site coverage. ADUs must comply with all dimensional standards including the site coverage, height, and setback requirements of the zone. 6. Scale and visual subordination. The ADU must be visually subordinate to the primary unit. If the ADU is located within an existing residence, there can only be one main entrance located on the primary street-facing facade of the single-family residential structure, unless the residence contained additional entrances before the ADU was proposed. Detached ADU's and entrances that do not have access from the ground, such as an entrance from a balcony or deck, are exempt from this standard. 7. Parking. The off-street parking requirements set forth in Chapter 14.40 must be provided and maintained for the primary dwelling. No additional parking is required for an ADU. 8. Addressing. A separate address must be created for the ADU: December 28, 2022 Planning Commission Agenda Packet Page 14 of 23 Attachment 1 17.21.XXX – Commercial caretaker unit in commercial and industrial zones (CCU). A. Purpose. The purpose of a commercial caretaker unit is to: 1. Promote the development of limited housing options in commercial and industrial areas that are otherwise prohibitive of residential development. 2. Provide housing for an owner/proprietor, employee, or other on-site security or operations personnel of a commercial/industrial property where no residential dwelling units exist. B. Standards. A CCU must comply with the following development standards: 1. Configuration. An CCU may be located either within, attached to, or detached from a primary structure housing a commercial or industrial use. To ensure CCUs do not constitute an encroachment into commercial areas or otherwise compete with commercial or industrial developments for limited commercial or industrially zoned land, CCUs shall only be located above the first floor or to the rear of commercial or industrial buildings. 2. Density. Only one CCU may be created in conjunction with each commercial or industrial enterprise. A CCU which conforms to the standards in this chapter shall not be required to meet minimum residential density standards for the lot upon which it is located and shall be considered an accessory use which is consistent with the comprehensive plan and zoning designation for the lot. 3. Maximum unit size. The CCU must not exceed 1,250 square feet unless approved through an administrative conditional use permit process. 4. Setbacks, height, and site coverage. CCUs must comply with all dimensional standards including the site coverage, height, and setback requirements of the zone. 5. Parking. The off-street parking requirements set forth in Chapter 14.40 must be provided and maintained for the primary use of the parcel. No additional parking is required for an CCU. 6. Addressing. A separate address must be created for the CCU. 7. Occupancy. CCUs shall be reserved for individuals employed on site at the commercial/industrial use the CCU is subordinate to. 8. Applicability. CCUs shall be permitted on all lots within commercial and industrial zones where an approved commercial or industrial use is operating. In all other circumstances, CCUs may be administratively approved as a conditional use permit. December 28, 2022 Planning Commission Agenda Packet Page 15 of 23 December 28, 2022 Planning Commission Agenda Packet Page 16 of 23 Attachment 2 sEP - B pe7 0 r Converting Storefronts to Housing An lllustrated Cuide This project was supported in part by a grant from the National Endowment for the Arts, a federal agency. Cooer imnges: Douglas Farr €¡ Associates (lørge photo); Milce løckson (let't inset); Møry Fishmøn (right inset). This report is printed on recycled pøper. The Planning Advisory Service is a subscription service offered by the Research Department of the American Planning Association. Eight reports are produced each year. Subscribers also receive the PAS Memo each month and have use of the Inquiry Answering Service. Frank S. So, Executive Director; Sylvia Lewis, Publications Director; William Klein, Director of Research. Planning Advisory Service Reports are produced in the Research Department of APA. fames Hecimovich, Editor; Marya Morris, Assistant Editor; Lisa Barton, Design Associate. @Jr;Jy 1997by the American Planning Association and the City of Chicago. APA's publications office is at1.22 S. Michigan Ave., Suite 1600, Chicago ,IL 60603. E-mail: pasreports@planning.org. APA headquarters office is a|7776 Massachusetts Ave., N.W., Washington, DC 20036. December 28, 2022 Planning Commission Agenda Packet Page 17 of 23 Recommended A storefront building's most defining feature is the large amount of glass at the ground floor, punctuated by vertical cof umns and horizontal transom and sill lines. The light and open appearance of the glass, combined with the slenderness of the storefront's structural members, is meant to contrast with the heavy masonry or solid wood walls of the floors above. Not Recommended When you replace the storefront glass with a solid wall of masonry or aluminum siding, you lose not only the gravity- defying effect, but the vertical and horizontal divisions that help the proportions of the top relate to those of the bottom. c E à %5 :1-,î-"- !,f, æ,r, How should the bottom r€late to the top of tüe bui|d,ing? Passive solar heating South or southwest facing stofe- fronts can take advantage of their large expanses of glass for passive solar heating in the winter. In a passive system/ heat gain from the windows is stored during the day and released to the interior rooms ât night. The heat is stored either in an enclosed space behind the storefront glass, or in thick, ma- sonry "trombe" walls or other heat collectors behind the glass. These well-documented systems can be installed with minimal effect on the exterior âppearance of the store- front. Some of them, such as wateÍ- fflled tanks, can be custom-designed to be decorative as well as energy-saving. Shielding from sunlight Traditional methods In hot weather the problem in converted storefronts becomes heat gain rather than heat loss. Blinds, shades, and awnings provide tradi- tional solutions that can be adjusted to the time of day and the season. Deciduous trees/ strategically placed, wil1b1ock out the sun in the summer and allow it to fflter through in the winter, when it is desired. Glass coatings and tints On existing storefront windows, a coated polyester "glazrngfrln:'" can be applied to the interior glass surface to provide solar insulation. Working in much the same way as sunglasses, these low cost fflms come in a variety of colors, and generally have a 10- to Zo-year life span. If you are replacing the storefront windows, one option would be to install tinted glass to reduce heat gain. Tinted (or heat-absorbing) glass absorbs a portion of the sun's energy and then dissipates the heat to both the interior and the exterior. The exterior face also reflects a certain CONVERTING STOREFRONTS TO HOUSING amount of the eneïgy be{ore it isabsorbed by the slr;;. Àto;;;,,h a reduction in heat, h"*;;?, ;h;',To.y.rr of light allowed in _" ú"significantly reduced ,, *"ii.'*, "' Because the tints are integral tothe glass, they are peïmanent. Factory_coated window fi lms,known as ,,low 8,,, are ¡"ao_i""more cornmon than tinted glrr, " for reducing heat gain, especjallvin residenti"l rr".þpi";ll;ä'l ored (pinl<, yelJow, or'blue), tt,ïrnf,sometimes clear, the fflm is "p_ ." plied between layers of insulaiins gta.ss. As the insútate¿ *i"ä"#ïãrtfaiJs (,it,s usuaJly gone in about I5yearsl these coatings wilJ wear out. Th^e. most signifi cant drawbacl<ot frlms and tints is that, as thedegree of solar protection in_creases, the amount of daylight letin decreases. Also, ,h" d;;;?;;r;"shading, the more mirror_úke thãglass becomes from ,¡" ""irìãà.'iryou choose to tint your windows. w-e recommend moderate degreeso{ shadrng, in combina;i;;irh " blinds, drapes, "rrA r*riffi.",*" lVleeting "light and Vent" Codes Keeping as much of the frontglass area as possible m ,iárïrrorrtconversions is desirable not orrlvrn terms of aesthetics, it is alsooften necessary to meet coderequirements for natural iight inresidences. To better rrr¿"rãt"rrJcurrent light and ventilationregulations, a JittJe Irirtárywill help. The light and ventilation codes weaord_e by today were ffrst enacted Ãthe late nineteenth centuryrn response to miserable híingconditions in tenement housif;S. ^,::1" codes required natural lilhtand lresh air in residences butnot in businesses because many CHAPTER 2: KEY ISsUES Cânvas æuafuç: AtSwe*hou,p¡rú sohrfu December 28, 2022 Planning Commission Agenda Packet Page 18 of 23 tsgı () Design the living space without partitions. The "open plan" scheme differentiates spaces by low walls or furniture, changes in flooring material or floor height, drops in the ceillng, etc., rather than by floor-to-ceiling parti- tions. Natural light and ventilation circulate freely within the undivided space. Many storefronts have no side yards and, thus, are limited to the front and back facades for window and door openings. So, meeting the additional level of natural lighting and ventila- tion required when storefronts are converted to residential use may present a problem. We recommend five basic approaches to this problem. Locate habitable rooms on outside walls with windows. Habitable rooms include bedrooms, living and dining rooms, and kitchens larger than 125 square feet. This is the traditional, ideal solution for residences, but often is not possible with long or land-locked storefronts. Allow interior rooms to borrow from fooms with direct sunlight and natural ventilation. Some cities permit "shared" light and ventilation in buildings converted to residential use. Carve out new courtyards. Adviseable for multilot, one-story buildings only, where larger floorplates permit the loss of some interior space. To keep costs down, the courÇard locations should be coordinated with the existing structural grid. Use operable skylights for "interio/'rooms. This solution works best for one-story buildings, where adding new skylights is relatively easy. Skylights are a good idea for storefronts in multistory buildings only if they can be located in existing lightwells. Otherwise, cutting out new lightwells through many floors is expensive and takes space away from the upper floors. ,iJ borrow light and vent from a room *i,h , direct source) is an optlon - ;;i;"s as Your local building áLo"r,',11"tt, recognizes thi s con cept' ïir-i..¿ numbèr of cities' have rìåii.it"t ror shared light and vent in their building code' Problem buildings Onlv in verY long, multistory Ïä'åm'it''il diägs (about 1,og i""' or longer) with no light avatLaoLe from sidewalls or skYlights/.ano int"tiot spâces that are too tar lrom ät;;;;;";;' of light' does Provid- inn "tto"sh naturaI light become äiig..,li.î"me building codes. i"ïãü "t,incial light to substitute ior rr"tot"l light in living spaces âs îJïãt i" kiichens and baths'' irti"rt *å"id be necess ary in longer storefront conversions' Most ä;;;;;;' are less than 1oo {eet long, ho*"ver/ so the lighting ,".[it"-"ttts are easier to meet' people-homemakers' children' the ãi¿Ërtv-tPent most or all of their ã"ï"í it"*e, whereas emPloYees orárorn"t tY sPent onlY.a limited ããão", of time at work' Despite the universal availability ãi"i*iti" lighting and the wide- ;;t*d;t" oI air-conditioning in today's homes, manY residential codes have not been updated' tn ðïi"u*o, for examPle' co-des for ""*À".i.lul buildings allow. me- ãf'tr"i."f sources of ventilation as ;h;;l;*PPIY, but' for residences' ïit*il".";ói tn' tit "n"n and bathroom are recluired to have ;;;;;lri" windows' (rhough most ;;;;l;;""1d Prefer to have win- äowt itt everY room' there ",t:,to*" cases where excePtions could De rtä",';;;h as foi dinins rogms"an$ ä"î.1,'*hi"h are used sporadically' ) So. storefronts that meet the ffiü;;"de as commercial spaces är""" å?¿ additional natural I igh t- i"g'^"¿ ventilation when con- ï"it"¿. This Presents a Problem' but in most cases' the solutions ur" oo, di{frcult (see "Light ano î"-rrã^tio" Pointers" at right)' Natural light Natural ventilation Sirr"" -o"h of the storefront glass ä;ä;itionallY fi'xed' Providing irr"ãã"". of natural ventilation ;il;á lrv code is more trickY' ıi nittoti" storefronts that âre i"i;;;;;;""ltY the onlY window that oPens will be the transom Ïüäìã',n. storefront door' This is ;;;b;Ñ not enough ventilatins ãt.",o meet "ode requirements' lo*"""t' For instance' the current ä;;"r* code for residential uses .tvt ifi", half of the window area ;å;o"d for natural light must be operable. lnstalling oPerable wíndows It i, r"r. fo-r the orisinal transoms ;";-.h" disPlaY "å to be oPerable' But it's easy to rePlace a fixed ;;;.*m with one that oPens' The windows can be different tYPe:- u*ning, hoPPer, even sliding glass- ;;triï fiiin with the architec- i"åi "tt"tu"ter of the building iJ." ilf"tttution page 34)' These . window tYP"' *o'it because their ;;;p";;ú; are horizontal' as is the transom area' For average-length storefronts i"rr"* åó:so feãt long), Providing lrrotgh tight is not an issue' due ;;,h; larle amounts o{ glass 11 1\" iroot f"."d", and the light avattaote from the rear windows or srdewair .ro"t'tl"*t' Openings at the rear can rrã i""tË"t.d in size (or openings' ;;;î; added to exPosed sidewalls)' iä"åJ;;, wrthout damaging the character of the building' Shared light (and vent) ão-"ti-"tfit's not Possible for ;;;;;;;'* to have a window on ;;ir*á; *all' if the storefront-is ät" ";" ;,orY, it's eâsy. to install. ;;lrbi; skYtights for these interior ,åo*r' It's even Possible to carve out interior courtyards' In multi- - Iä.ïï"ii¿ings, "shared" light and 'rr.níit",ioo (where an interior room ù1, *ittdo*s or oPenings that I CONVERTING STOREFRONTS TO HOUSING CHAPTER 2: KEY ISSUES tight and Venti'lation Pointers December 28, 2022 Planning Commission Agenda Packet Page 19 of 23 ICase 1997 Consttucti on Cost Estimate :CAISESTlrDy First-floor interiots Demolition and hauling Carpentry t and back f a cades, and site imqrovements $ 7,725 14,956 $ 1,854 845 9,270 2,987 27,654 1,7 42 7,4r5 onLy, fron Framing and trim Drywall CabinetrY and toPs Doors and hardware A midblock, multilot, two-story building (40'wide by G0' long) Windows and doors Storefront {new wooden-windows and frames, ä'ì;;;;"t* bulkhead) $ I Second-floor' front windows '(new Chicago stYIe windowsl Rear (remove brick at former window op""itgÏ,Ttïi"ti í""t windows and doors) Painting AFTER CONVERSION t i'åï:iî'*iî'"*d",i::, flexibility in dividing up the ffrst floor space), this building has a solid bearing wall cutting the storefront space decisively in half. Built in 1910, the structuïe wâs designed for two storefronts, separated by a slightly off-center stairway leading to the two apartments upstairs. Mike fackson, the architect who converted the storefront for his family in 1987, found that fhe storefront Íacade was largely intact. The wooden bulkheads, doors, and winclow frames were in good repair. One storefront had an Terra Cotta Remove gunnite, remove sign'clean. Does not include terra cottâ repalr 6,O25 2,472 $ 2,884 8,24O 2,884 4,120 g 9,270 1,700 s 9,476 1,442 $ 10,631 5,600 18,128 10,970 12,560 r0,918 l06,5l I $ 116,942 $ lo,25o $ 8,086 Design Strategy Architect Mike Jackson's idea was to adapt this storefront into living space for his own family with a minimal amount of change, preserving the building's notable archi- tectural features both inside and out. He elected to take over the entire ground floor while retaining two separate residential units upstairs. The bearing wall divìder between the former storefronts works to the family's advantage, creating two zones: one mainly for the parents (living room side), and one for their teenage son (family room side). Finishes Carpeting Ceramic tile Painting Appliances Plumbing Rough Fixtures HVAC Gas forced-air furnace with Electrical Rough Fixtures Subtotal 10% contingencY Total $39 per squâle foot (3,000 square feet total) Storefront Alternate I Metal stock frame, obscure and clear glass Storefront Alternate 2 Translucent panels, stucco and clear glass unit for air conditioning co = condensing $ 9,650 CONVERTING STOREFRONTS TO HOUSING original, recessed center entryl and the other, an original off- center entry with an enclosed display case. A sidewaik overhang was â ïem- nant from an earlier second-story porch. This upper floor was ffnished in rock face concrete block, a popular building material of the early twentieth century. Inside, a noteworthy feature was the decorative tin ceiling, which fortunately was in good repair. Though midblock, this storefront building is actually freestanding. It sits on a mixed-usê, rnoderately busy street in Springfield, Iliinois. 6 CHAPTER 3: CASE STUDIES TEEI I ETEI I -l tE-l r:=r--1 tt I December 28, 2022 Planning Commission Agenda Packet Page 20 of 23 I I 1 Il I I Floor plan The storefront unit is enteredfrom the.living room slde oniy.Double doors carved into the'dividing wall aliow passage intothe teen zone. The originãl, centeïshopfront door on this side isretained, however, even though itls not normally used. The decorative sheet metal ceilinghighlights the open pfr",p*".'îli" most noteworthy ìnterior feature isa Large bullt_in refrigerator with anoâK ïront-converted by the archi_tect into a walk_in closet. lg"t facade and site plan Lil<e Case Study Z, becausË thisstoretront was located in a mixed_ use residential setting, the store-front owners never f;"J;;;;;, sary-to brick-in the rear Íacadewindows (as is likely to happenrn commercial districts thaiare deserted at night). rh" orig,nlì"r"r,wlndows and doors remained, and.like those of the ,tor"rrãnf i;";;:' are well-suited to residential use.'At the rear of the lot is a smallyard, andJ:eyond that, païking space for four cars. FACADE Éo o = Front facade Due to the high clualitY of the original storefronts, and the pres- ence of operating trânsoms/ a simple scraping, rePainting, and caulking job was all that was necessaïy to make the facade work-a tremendous cost savings for the conversion Project. Ventilation from the over-door transoms is supPlemented bY natural air {rom side and rear windows. At the liriing room, the enclosed display window below the trânsom helps create an insulating space against noise and extreme temperatures outside. Blinds add a ievel of privacy, and, along with the sidewalk overhang, helP shield the window from too much sun' t--- I I I I Irul Bedroom Êl¡ rtt I Il-l t¡¡ I*¡¡Elr-l.^l b I I I I Family Room Porch a Dining Bedroom o o E Living Room Kitchen Co !l = View toward living room from dining room FIRST.FTOOR PIAN oo LIL CONVERTING STOREFRONTS TO HOUSING CHAPTER 3: CASE STUDIES à December 28, 2022 Planning Commission Agenda Packet Page 21 of 23 -- lS-Minute Design Solutions 2'\Þþ* I FÊoÑT SECTION AND PLAN Four townhouse units, carved-out atrium, rear bay retained for garages with hruo additional units above 6,L ¡l*¿" At/ REAR eusr)-l f ..Ü lw ÔZ ¿lô 2 stoEwAt-K ILOOK P¿-AÑ )T All building codes require ventila_tion for almost any use to whicha structure can be put. Some codeshave,lighting r"quir"_"r.,,r, roã. -" For all uses excepr residential.ventilation and Iighting r,rnãrr¿, ;an b¡ rnet by me.hr',[al ;;;;; ¡r..e., fans, air conditioners, andelectric lighting). Only for ."riA"n_rrat uses do codes require specificâmounts oÍ natural light andventilation.,,Naturall light means :l']ich:.:hrough clear sfãrt "r; ;;;'.'..naturaL,, ventilation _"rn, fi,"flow of outside air unassisted bymechanical devices. Natural lightand ventilation may enter a resi_dence through wìnáows, doo^r' {rn .so-rne bui lding codes), and skylights. Tñe folloiing sections describe how the cãde, of{ive cities treat rhe issues "lú;h;^and ventilation. Chicago Building GodeIn the Chicago Building Code,rhere are two criteria for deteimin_ing the natural lighting rrr¿ rr"rtiù_tron requirements for residences.They are: l ) the use to which eachïoom or space is to_be put, and,2)the size (nurnber of sqùare feet) .?l^"r:f room or rpr... Regarding lrl,. C.h].r8o requires thaiall nâDrtable rooms receive naturallight and ventilation.,,Habitable rooms', are defined as rooms ,,used or intended to be used for living.sleeping, eating, or cooking.,iiîi, ts lnterpreted to mean liviÀg roo.ms/ dining ïooms, bedroãms, and kitchens over 125 square feåt.Bathrooms, laundry ïooms, foyers.corndors, closets, and storage spâces do not require naturallight and vent. Once the use of each room has been determined, the sizeof,each habitabie room must becalculated. The Chicag, B;lì;;gCode requires the size"of ,fr",à"?".of natural light and u"rrtitrtlon"-"' lusuatJy a window) to be a mini_mum percentâge of the floor area of each habitable room orspace. The standard percentages are 10 percent (natural hshtlãnd Spercent lnatural ventilati"on l. Ior-example, a bedroorn l0 feetDy t5 feet has an area oÍ I 50 squarefeet.-The natural Jight requir;å;;;would be t0 percenl of tso, ";Jl^"square feet. This arnount would besarisfied b,y a rypical*i"¿o* tl_,rããreer wrde by tive feet high. Thenatural ventilatjon requirement would be 5 percent of j S0, oli.-Ssquare feet, which would t" ,"_counted for when the bottom halfof a three-foot by five_foot ¿or-rUå_nung window was opened. Due to a )arge number of industrialloft conversions, the Chicago codenas specral provisions for residen_tial open floor plans withoutpartitions and spaces deeper thanl.ó,teet. For these typ". oi residen_tral spaces, the percentages ofrequired natural light and ventila_rron tncrease to l2 percent and 6percent. This means that, in theabsence of intervening partitions. aspace may receive all of jts nrturrllight and ventilation frrrn """"i,îfì,regardless of the distance away tight and ventilation building codesand storefront conversions 1.04 lolút cø.1-''l -ift l.F-I -ø?wèffi ' *'t">, r'' o o 1.t2 &1,à SECTì2ñ t,tb ?."Õ.0 (-r^ 2 STY, 6 ô ¿ /J\O /l)L /¿ ;.J(- h t, àh*' Lr ILJ {(,¡*c yl^ l*LZ L t /t(,/ | bf l\l-' ) L a l*lzù.¡'¡ fh tlu\î '¡-t L,lJ (! lt4- ^, FIRgf{l\' .t [h{'-4 z'Ç >ü'^ APPENDIX ZÞY\. u"r f-Ì¿^ l1 CONVERTING STOREFRONTS TO HOUSING APPENDIX BDecember 28, 2022 Planning Commission Agenda Packet Page 22 of 23 from that wall. The exact distinc- tion between an open floor plan- and one where rooms are considered sepârate is unclear, however' nurtding DePartment ofiicials ã"ttà",iv must decide on â case-by- ãàr" u"tit whether Plans with nartial height pârtitions or rooms- i"itt in-"-tóom (such as an eight- i"ã,-ftigft bathroom volume within " ii i"ã. nigh sPace) can be consid- ered as loft spaces for the purposes Àt tgtt, and ventiiation calculations' The Chicago Code also has a nrovision for residential conver- ãio,., *h"tt all of the habitable tão*t cânnot be arranged to have ã direct source of natural light or vent. This Provision allows for ;;;;t receìving direct light and . r""i," "share'iwith those that do not, in buildings built before 1957' ihá p"t""t tages of required open- ittgt ìo floor area increase substan-^,ì-uiy to-pared to what is recluired iot tâo-t ihat receive direct light and vent. Pages 79-82 of this ^ooendix illustrate the calculation oi'shared light and ventilation per the Chicago Code' Milwaukee Building Code Other codes deal differentlY with ,to "on""p, of light 4nd ventilation io. r"tid"tttial conversions' Mil- *"11L"", which uses the Wisconsin State Building Code, also requir-es ""i"t¿ light ãnd vent for all habit- "üi" toorn"t, but restricts the deiini- tion of these rooms to "bedrooms and one room designed for lìving purPoses." The Percentage of floor area required for openings is only 8 olt.."ifot light and 4 Percent for ient. Doors maY be counted as op"r.ingt, while in Chicago, theY .ro no1. Chicago, on the other n"í¿, allows shared light and ve.nt i" "ii t"tia.ntial uses, while Mil- waukee onlY allows it in transient o"".tprt"l"s such as hotels and motels. MinneaPolis Building C,ode MinneaPólis uses the 1994 UBC {Ut¡fottrr Building Code), which is "t"à frv manY other municiPalities as well. It is imPortant to note/ howevet, that even though cities mav adoPt national building stan- ãrrât t.råh as the UBC or BOCA [Building Officials Code Adminis- trâtorsl codes, the interpretatlon of the same code book maY varY widelY from Place to Place' iUinnåaPolis has a Provision {or ,h"r"d light and ventilation' recluir- ing a minimum oPening of 50 n"i."rr, in the common wall lr.,*..n the lending and borrowing fooms. Gincinnati Building Code Cincinnati, which uses the BOCA ;;e;; """-Pts all kitchens (regard- less of sizef and bathrooms from ,rlu ,lntrr^l tight and ventilation rec1.tir"m"nts. Alt other rooms must have their own direct sources of light and vent. Gleveland Building Code Cleveland also uses BOCA' but it i*rpr",, residential light and vent tãq"it"to""ts diif erently' Natur¿l iigiìir"¿ ventilation is recluired in sl-eeping rooms only' Other spâces may substitute mechanical sources {or natural ones' Features in light and ventilation codes that would facilitate storefront conversions 1 Provide explanations and inter_ pretations of "difficult,, sections of the code 2. Define habitable rooms (i.e., those requiring natural light and ventilarion) to include only bed- rooms and living rooms/ 04 3. Allow the use of mechanical ventilation and artificial light in some habitable rooms, such as kitchens and dining ïooms 4. Allow the use of glazed doors and operable windows on interior openings required between Íooms sharing light and ventilation, rather than requiring the openings to be permanently open 5. Include the glazed areas of doors in the calculation of natural light provided and include door opening areas in the calculation of natural ventilation 6. For the purposes of loft or open plan conversions, add a statement in the code that specifically defines ân open floor plan; that is, what is the maximum percentage of wall area or the maximum partition height allowed between two spâces before they must be considereã as two separâte rooms? Shared tight and Ventilation lllustrated Using Chicago Building Code Standards as an Example Rules ]. Th" arca oÍ spâces borrowing light and ventilation must be 30 percent or less of the area of the entire unit. 2. The area of outside wall openings providing natural light and ventilation must be l5 pércent and 7 .5 percent/ respectively, of the sum of the areas of rooms or spâces borròwing plus rooms or spaces lending light and ventilation. 3. The area of openings between the borrowing and lending ïooms must be 30 percenr (for light) and 15 percent (for ventilation) of the iloor area of the borrowing rooln. The worksheet on the following p-age takes you step-by-step through the calculation of shared light and ventilation requirements, based on the Chicago Building Code (1994 version). The example illustrates Unit B alternate from Case Study 3. Note that the worksheet verifies oniy that the rooms sharing light and vent meet code requirements; the requirements for other rooms receiving direct light and vent should be calculated in the usual way. CONVERTING STOREFRONTS TO HOUSING APPENDIX BDecember 28, 2022 Planning Commission Agenda Packet Page 23 of 23