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HomeMy WebLinkAboutDepartment Report 07-07-204 Carmel Plan Commission RESIDENTIAL COMMITTEE Tuesday, July 7, 2020 Department Report 2. Docket No. 19090013 OA: Accessory Dwelling Ordinance Standards. The applicant seeks to amend the Unified Development Ordinance in order to establish standards and minimum requirements for Accessory Dwelling Units and to amend definitions. Filed by the Department of Community Services on behalf of the Carmel Plan Commission. *Updates to the Dept. Report are written in blue. Project Overview: Please view the informational packet for the proposed ordinance. The purpose of this proposal is to amend the UDO regarding Accessory Dwelling Units and definitions related to Group Homes. In summary, the ordinance proposes the following: 1. Allow accessory dwelling units by right in residential zoning districts. 2. Establishes standards for accessory dwelling units for those adding an accessory dwelling to their property. 3. Requires 20% of new lots developed in new subdivisions (10 or more lots of 1 acre or less in size) to include an accessory dwelling. 4. Revises definitions related to Group Homes to include quantities and remove outdated references to Indiana Code. Why Accessory Dwellings? The need to offer a variety of housing options has long been a topic of discussion in city planning. By all measures, Carmel has been experiencing rapid housing growth for the last 50 years; most of which has been developed in the form of single-family detached houses. Over the last 20 years, Carmel has also been a successful market for other housing types with the addition of townhomes, condominiums and apartments into the mix. With continued housing demand, rising housing costs and a shrinking supply of land to develop, we believe it is time to adjust our housing strategy to continue to meet the needs and preferences of residents. Removing zoning barriers to the construction of accessory dwelling units is a logical next step. Also known as granny flats, carriage houses or in-law suites, accessory dwellings are independent living units which are either attached to, within, or located on the same lot as a single-family home. They are flexible in size and configuration and are more affordable for young couples who want a small footprint or for seniors looking to downsize and remain in their neighborhoods. They can also provide a source of financial stability for homeowners to stay in their houses or rent out the main house – making aging in place possible. In short, accessory dwellings can be a solution to high housing costs, limited developable land, and demand for multigenerational living. With carefully crafted standards, they can be built discreetly into the character of new and existing neighborhoods while making efficient use of existing street and utility infrastructure that is so costly for new developments. Resources: There is abundant research and numerous articles available regarding accessory dwellings. Here are a few resources that the Department found to be particularly helpful, including a 2018 study of housing and the future workforce in Central Indiana: • AARP: The ABCs of ADUs and All About Accessory Dwelling Units • National Association of Home Builders (NAHB): What is the “Missing Middle of Housing? and Yes, In My Backyard • MIBOR Realtor Association: Coming Up Short: Housing the Region’s Future Workforce. Some may recall representatives of MIBOR presented the highlights of this study in 2019 at a Dialogue Dinner held at Fire Station 45. Group Homes: See the memo from John Molitor and a copy of a 2018 federal court decision distributed with this Department Report. Proposed Revisions: No revisions to the proposed ordinance have been prepared in advance of committee review, so we will work from the Ordinance draft dated June 6, 2020, which was introduced at the June Plan Commission meeting. See the Committee Packets with a cover memo dated June 26, 2020 for responses to many of the topics raised at the public hearing. June 16 Plan Commission Meeting Recap: Staff presented an overview of the proposed ordinance amendment and described what an accessory dwelling is and the many forms they could be constructed, whether within, attached to or located on the same lot as a single-family home. Staff also summarized the rapid housing growth in Carmel over the last 50 years, noting that even though single-family detached houses have made up the majority of the new housing options, other types of housing, such as townhomes, 5 condominiums and additional apartments have also been introduced into the market. The amendments were then summarized based on the purpose of each Article affected in the UDO, and additional clarification was discussed regarding the amended definitions relating to Group Homes. Finally, staff re-iterated ADUs as an option to help offset high housing costs and limited developable land, particularly because they can be discreetly built into the character of new and existing neighborhoods while also making efficient use of existing infrastructure. Three letters from the public were received and acknowledged; one in favor (Andrea Davis/HAND, Inc.), and two opposed (BAGI and a citizen). Plan Commission members had several questions, including if/how setbacks and district standards would be applied, whether this ordinance would supersede subdivision covenants, and how utility capacities may be affected. Members also expressed concerns, including the potential effect on existing neighborhoods, limiting consumer choice by requiring ADUs in new subdivisions, and potential unintended consequences of requiring ADUs such as increased costs, increased proposed lot sizes to avoid the requirements and the location of new developments further away from walkable areas. The Plan Commission forwarded this item to the Residential Committee meeting on Tuesday, July 7, 2020, with the final voting/recommendation authority returning to the full Plan Commission. Recommendation: The Department of Community Services recommends the Residential Committee set a time limit for this item and begin discussion the proposed ordinance in the following order, as time allows: 1. Article 5: Establishes standards for ADUs for those adding an accessory dwelling to their property. 2. Article 11: Revises definitions related to Group Homes to include quantities, remove references to Indiana Code. 3. Article 2: Allow accessory dwelling units by right in residential zoning districts. 4. Article 7: Requires 20% of new lots developed in new subdivisions (10 or more lots of 1 acre or less in size) to include an ADU. Topics not reviewed within the established time limit should be continued to the August Residential Committee meeting for review and discussion.