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SummaryFindings–AccessoryDwelling“PilotProject”OnOctober7,2015,theRaleighCityCouncilreceivedaPetitionofCitizenrequestinginitiationofaprocesstopermitbackyardcottagesonpropertieswithintheMordecaineighborhoodarea.CityCouncilreferredtherequesttoCityAdministrationforstudy,withaprimaryconsiderationbeingthepossibilityofthecreationofnewOverlayDistrict.STUDYAREAFor the purposes of this assessment, the area under consideration is that defined by the boundaries of theMordecai Citizens Advisory Council. Roughly, the area consists of some 635 acres, bounded by theNorfolk-SouthernRailroadright-of-wayonthewestandnorth,AtlanticAvenueandBrooksideDriveontheeast,andN.BoundaryStreetandPeaceStreetonthesouth.AreaZoningTheCACareaencompassesamixof zoningdistricts,within residentialdistrictspredominating. Mostdistrictspermittingnon-residentialusesareconcentratedtothewestandnorthalongCapitalBoulevard,andbetweenPeaceandDelwaystreetsonthesouth.Small-scaleretaildevelopmentisalsolocatedonWakeForestRoadandportionsofN.BlountStreet.Onlyresidentialusesarepermittedonmostotherproperties.MostparcelseastofWakeForestRoadarezonedR-10,whilewestofWakeForestRoad,exceptforapocketofR-10zoningcenteredMarshallStreet,zoningisR-6.Thesebasezoningdesignationsnotonlydeterminesiteuse,butalsoelementsofbuiltform,asUDOBuildingTypesarelimitedbydistrict.An added consideration in the central and eastern parts of the CAC area is the presence of the MordecaiNeighborhoodConservationOverlayDistrict(NCOD)and,onthewestsideofBrooksideDrive,aportionoftheOakwoodParkNCOD.Developmentintheoverlaysissubjecttoadditionalstandardsregulatingminimumandmaximum lot size and width, maximum building height, and, related to principal dwellings, minimum frontsetback.AsummaryofNCODstandardsandamapoftheassociateddistrictsareattached(AttachmentsA&B,respectively). NCOD standards may preclude certain Building Types, which could permit more than oneresidenceonasingleparcel,fromcertainpropertieswithintheOverlayareas.

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ACCESSORYDWELLINGS-DISCUSSIONTODATEBackgroundThePublicReviewDraftoftheUnifiedDevelopmentOrdinance(UDO)containedprovisionswhichwouldhaveallowed“BackyardCottage”asapermittedBuildingTypeinallResidentialzoningdistrictsandmostMixedUsedistricts.Inadditiontodescriptiveinformation,thesectionincludedstandardsregardingLotSpecifications(e.g.,min. lotsize,max. livingareasize),BuildingSetbacks,Height,andVehicularAccess. Acopyof thesection,asoriginallyproposed,isattached(AttachmentC).The Public Review Draft of the UDOwas released in April, 2011. In the followingmonths, public commentincluded concerns regarding potential negative impacts on existing neighborhoods, should the provisions beapproved.Thoseissuesincluded:

• Incompatibleform/design:− Quality/ compatibility of development -- Lack of guarantee as to cottage building materials and

qualityofconstruction.− Height -- Potential for cottages effectively to bemore than 2 stories on sloped lots, and rooftop

patios/parapetstobepartofflat-roofedcottagesresultinginthebuildingineffectbeingmorethan25feettall.

− Privacy impacts -- Questions of placement/ proximity to next-door backyards and dwellings,affecting neighbors’ privacy (e.g., cottage doors and 2nd-story windows facing neighboring yards;minimumdistancefromsame-lothouseprovided,butnotfromhousesonadjoiningproperties).

− Transitionyards/fences–lackofprovisionsrequiringthemindenseresidentialareas.− Parking -- On-site parking requirements could potentially increase curb cuts (impacting traffic

movement)whileexpandingsiteimpervioussurfaces(impactingstormwaterrunoff).• Incompatibleuse:

− Encouraging proliferation of rental units -- There is a lack of assurance that cottages would notbecomerentalunits,coupledwiththepotentialthatbothprincipaldwellingandcottagewouldbothbecome rental [due to court ruling that owner-occupancy cannot be required; see City ofWilmingtonv.Hill,189N.C.App.173,657S.E.2d670(2008).] (Ontheotherhand,NorthCarolinamunicipalitiesmayrestrictthenumberofunrelatedpersonslivingonasingleparcel.)

− Potentialforessentiallydoublingsitedensity,irrespectiveofzoningdistrictdesignation.− Potentialforincreasedlightandnoise.

The net effect of permitting cottages, many citizens felt, would be to encourage rental units over homeownership, which could destabilize neighborhoods, and decrease property values. In February, 2013, CityCouncil voted towithdraw theproposedBuilding Type from thedraftUDO; theUDOwenton to approval inSeptember,2013,withoutitsinclusion.SubsequentDiscussionCitizenproponentsofaccessorydwellings,however,havecontinuedtoexplorecircumstancesunderwhichthebuildingformmightbepermitted.Inthefallof2014,studentsandfacultyoftheNCStateUniversitySchoolofArchitecturepresented the resultsof “TheMordecaiBackyardCottageProject,”which tookadesign-orientedapproachtohowaccessorydwellingsmightphysicallyfitintotheMordecaineighborhood.Componentsoftheprojectalsoexaminedhowothercitiesincorporatedaccessorydwellingsintotheirrespectivezoningcodes(seehttps://design.ncsu.edu/ah+sc/?portfolio=the-mordecai-backyard-cottage-project.)

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EXISTINGMULTI-DWELLINGOPTIONSTheUnifiedDevelopmentOrdinancealreadypermitsmorethanonedwellingonasinglelotorsite,viaprovisionofspecificBuildingTypeswithinspecificdistricts(Article1.4).Twodesignoptionspertaintostructuressharingthesameroof:AttachedHousepermitstwoprincipaldwellings(i.e.,duplex)onalot.ItisallowedbyrightinResidential-6(R-6)andResidential-10(R-10)districts,andmostMixedUsedistricts: R-6 R-10 MixedUseMin.LotSize: 9,000sf 6,000sf 6,000sf(DX:n/a)Max.Height: 3stories/40’ 3stories/40’ 3stories/40’Advantages:• Alreadyallowedbyrightinrespectivedistricts.LotsizestandardswithintheNCODsofthestudyarea(see

AttachmentA)wouldaccommodatethisBuildingType.• Maximumdensitylimitedperrespectivedistricts.Disadvantages:• Bydefinition,unitsmustbecontiguous.Apartmentbuilding,definedasaccommodating3ormoredwellingunitsinasinglebuilding,isnotpermittedinResidential-6(R-6)zoning,butispermittedinR-10andmostMixedUsedistricts: R-6 R-10 MixedUseMin.Lotsize: -- 15,000sf 10,000sf(DX:n/a)Max.Height: -- 3stories/45’ PerDistrictAdvantages:• Alreadyallowedbyrightinrespectivedistricts.• Maximumdensitylimitedperrespectivedistricts.Disadvantages:• Bydefinition,unitsmustbeinonebuilding.• Opportunityrestrictedbyminimumlotsizes.WithintheMordecaiNCODareas,maximumlotsizestandards

wouldeliminateApartmentasapermittedBuildingTypeintheR-10basedistrict.Athirdoptionpermitsmultiplefree-standingunitsonasharedsite:CottageCourt,whiledefinedintheUDOasan“AdditionalHousingPattern”ratherthanBuildingType,permitsuptofivedwellingsatasinglesharedlocation.CottageCourtstooareallowedbyrightinResidential-6(R-6)andResidential-10(R-10)districts,aswellasmostMixedUsedistricts. R-6 R-10 MixedUseMin.Lotsize: 40,000sf 22,000sf 18,000sfMax.Height: 25’ 25’ 25’Max.#ofDwellings 5 5 5(permin.area)Min.#ofDwellings (notspecified) (notspecified) (notspecified)

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Advantages:• Alreadyallowedbyrightinrespectivebasezoningdistricts.• Couldpermitjusttworesidencesonasinglelot(ineffect,principaldwellingandaccessorydwelling).Disadvantages:• Opportunityrestrictedbyminimumsitesize,minimumlotsizes,andrequiredopenspace.• WithintheNCODareaswithintheMordecaiCACboundaries,minimumnetsiteareastandardswould

eliminateCottageCourtasapermittedBuildingTypeonnearlyallparcels.TestCase:MordecaiAttachedisaseriesoftablesand/ormapsindicatingthosepropertiesintheMordecaiCACareainwhicheachoftheaboveoptionsarenowpermitted.• AttachmentE–PropertiespermittingAttachedHouses• AttachmentF–PropertiespermittingApartments• AttachmentG–PropertiespermittingCottageCourtsSpecialOption–HealthCareStructuresN.C.G.S.160A-383.5,whichbecameeffectiveOctober1,2014,permitsbyrighttheinstallationof“temporaryfamilyhealthcarestructures”asaccessorydwellingsonlotswithinanyzoningdistrictinwhichsingle-familydetacheddwellingsareallowed.Thestructuresaresubjecttomultiplequalifications,amongthem,thattheybeassembledoff-site,builttothestandardsoftheStateBuildingCode,transportable,andbenomorethan300squarefeetinsize.Theyalsocannotbeplacedonapermanentfoundation,andmustberemovednomorethan60daysafterbeingvacated.Additionally,theywouldbesubjecttoalllocalordinances(includingzoningsetbacks,height,etc.),andmayalsobesubjecttorestrictionunderprivatecovenants.Aspecialusepermitwouldnotberequired.SomeNorthCarolinamunicipalitieshaveamendedtheirrespectiveCodestolistthestructuresasapermitteduse.Inthosecitieswhichhavenot,includingRaleigh,theprovisionsoftheStatestatuteautomaticallygovern.Nonetheless,undertheStatelegislation,“healthcarestructures”arenowalegally-permittedaccessorydwellingonallparcelsinthestudyarea,providedstatuteprovisionsaremet.POTENTIALALTERNATIVEOPTIONSThepreviousefforttowardpermittingbackyardresidencessoughttocreatestandardswherebyby-rightapprovaloftheform/usecouldbegrantedinnearlyallUDOdistricts.However,citizenconcernsoverthatapproachsuggestthat,foraccessorydwellingstobereconsidered,adifferentregulatorymethodisneeded.Suchapproachwouldostensiblynarrowthespecificcircumstances/criteriaunderwhichtheusewouldbepermitted.SpecialUsePermitTheUDOprovidesthatcertainusesmaybeallowedinspecifiedzoningdistricts,providedcertaindesignand/orperformancestandardsaremet.ReviewisbytheBoardofAdjustmentthroughapublichearingofquasi-judicialformat.

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AmpleprecedentforsuchanapproachisappliedintheUDO,governingresidentialusesasdiverseasBoardinghouse,CongregateCare,andSpecialCareFacilities.Advantages:• Usecouldberestrictedtocertaindistricts.• Usecouldberequiredtomeetspecific,objectivestandards.• Processprovidesopportunityforpublicdialogue,allowingfine-tuningofagivenproposal.Disadvantages:• Wouldbepermittedinanylocationmeetingzoning/sitestandards,withoutopt-in/opt-outopportunities.• Specificapprovalcriteriarequired,addressingsitedevelopment(e.g.,setbacks,height,etc.)anduse(e.g.,

restrictingnumberofunrelatedpersonsperparcel).• Expensetopetitioners(i.e.,applicationfees,timeinreview).• Addedadministration(i.e.,processingandreviewofapplication,includingPublicHearing).OverlayDistrictOverlaydistricts,asstatedintheUDO,aim“toapplyregulationsthatachieveaspecificpurposetoatargetedarea.”Bydefinitiontheyrequiredesignationofspecifiedboundaries,throughrezoning,andwithinwhichallprovisionsofthedistrictapply.Intheeventofconflictwithbasedistrictzoning,overlayprovisionsprevail.TheUDOgroupscurrentoverlaysintofivecategories:Environmental,Corridor,CharacterProtection,Transit,andParking.Ofthose,‘CharacterProtection’mostdirectlyaddressesbuiltform—themostoutwardmanifestationof‘accessorydwelling’asasiteuse.Advantages:• Usecouldberestrictedtowithinspatially-definedareas,viaopt-inrezoning.• Usecouldberequiredtomeetspecific,objectivestandards.• Processprovidesopportunityforpublicdialogue,allowingfine-tuningofagivenproposal.• Withinrezonedarea,usecouldbeadministeredlikeanyotherformofdevelopment.Disadvantages:• Wouldbepermittedinanylocationmeetingzoning/sitestandards,withoutopt-in/opt-outopportunities.• Specificapprovalcriteriarequired,addressingsitedevelopment(setbacks,height,etc.)anduse(• Addedexpensetopropertyowners(i.e.,applicationfees,timeinreview)andadministrativerequirements

(i.e.,processingofapplicationthroughallreviewstages).EithertheSpecialUsePermitorOverlayDistrictoptionwouldrequiredevelopment,approval,andapplicationofuse-specificstandardsforuseapproval.Suchconsiderationsmightinclude:• OverlayDesignation• Density• Occupancy• Access/parking• Form/placement• Transitions

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Asabaselinefordiscussionofthoseprovisions,staffpreparedamapstudyofpropertieswithintheMordecaiCACwhichcouldaccommodateanAccessoryDwellings,applyingthefinalsetof‘BackyardCottage’standardspreviouslypresentedtotheRaleighCityCouncil(February11,2013).Themapappearsbelow,asAttachmentH.DesignStandardsInadoptingstandardsforpermittingaccessorydwellings,othercitieshavespecifiedthatavisualdesignrelationshipbeinevidencebetweenprincipalandaccessoryresidences.Citedsimilaritiesrangefrombuildingform(e.g.,bothstructureshavingpitchedroofs)toexteriormaterials(e.g.,bothstructureshavingthesametype/colorofsiding).RecentactionbytheNorthCarolinaStateLegislature,however,limitssuchopportunity.SenateBill25/SessionLaw2015-86Zoning/Design&AestheticControlsremovedlocalauthoritytoregulatecertaindesignelementsforsingleandtwo-familydwellings.Suchfeaturesinclude:⋅ Exteriorbuildingcolor,⋅ Typeorstyleofexteriorcladdingmaterial,⋅ Styleormaterialsofroofstructuresorporches,⋅ Exteriornonstructuralarchitecturalornamentation,⋅ Locationorarchitecturalstylingofwindowsanddoors,includinggaragedoors,⋅ Numberandtypesofrooms,and⋅ Interiorlayoutofrooms.However,thelawspecificallystatesthatitisnotapplicablewithinlocalorNationalRegisterhistoricdistricts.MuchoftheMordecaiCACareawestofWakeForestRoadandsouthoftheNorfolkSouthernRailroadright-of-waycomprisestheMordecaiPlaceNationalRegisterHistoricDistrict(seeAttachmentI);withinthatarea,itcouldbepossible,then,toestablishcertaincontextualdesignstandards.InabilitytoapplysimilarstandardselsewhereintheCACarea,though,couldraiseissuesofpracticalityandequity(asitcouldleadtotwosetsofoverlaystandardsbeingadoptedinadjacentportionsofthesamegeneralarea).CONCLUSIONSAsdemonstratedbythePetitionofCitizenfromtheMordecaiarea,thereispublicinterestinpermittingaccessorydwellingsintheCity.Drawingfrompastexperience,however,thereisalsointerestinlimitingthelocationsandcircumstancesunderwhichtheusecouldbepermitted.CreationofaspecialOverlayDistrictprovidesanopportunityforbalancingtheinterestsanddesiresofthosewhoseektheusebyright,andthosewhomayholdconcernsinthatregard.

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ATTACHMENTA

NeighborhoodConservationOverlayDesignStandardsMORDECAINEIGHBORHOODCONSERVATIONOVERLAYDISTRICT(UDOSec.5.4.3.F.8)a. ConservationDistrict1

(westofWakeForestRoadandnorthofCedarStreet,exceptforpartofthenorthsideofCourtlandDrive)

i. Minimumlotsize:7,260squarefeet.ii. Maximumlotsize:14,520squarefeet.iii. Minimumlotwidth:50feet.iv. Maximumlotwidth:100feet.v. Frontyardsetback:Minimumof35feet.vi. Maximumbuildingheight:35feet.

b. ConservationDistrict2

(eastofWakeForestRoad,southofCedarStreetandportionsofCourtlandDrive)

i. Minimumlotsize:7,260squarefeet.ii. Maximumlotsize:14,520squarefeet.iii. Minimumlotwidth:50feet.iv. Maximumlotwidth:100feet.v. Frontyardsetback:Minimumof15feet;maximumof25feet.vi. Maximumbuildingheight:35feet.

OAKWOODPARKNEIGHBORHOODCONSERVATIONOVERLAYDISTRICT(UDOSec.5.4.3.F.11)a. Minimumlotsize(residential):6,000squarefeet.b. Minimumlotwidth(residential):55feet.c. Maximumlotwidth(residential):80feet.

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ATTACHMENTBMordecaiStudyAreaNCODs

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ATTACHMENTCBACKYARDCOTTAGEPROVISIONS–UDOPublicReviewDraft–April,2011

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ATTACHMENTDMordecaiCACZoningDistricts

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ATTACHMENTEMordecaiCACAreaPropertiesPermittingAttachedHouses*ZoningDistrictsthatpermitAttachedHouses:R-6,R-10,RX-,OX-,NX-,CX-,DX-

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ATTACHMENTFMordecaiCACAreaPropertiesPermittingApartments*ZoningDistrictsthatpermitApartments:R-10,RX-,OX-,NX-,CX-,DX-

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ATTACHMENTGMordecaiCACAreaPropertiesPermittingCottageCourtDevelopment*ZoningDistrictspermittingCottageCourts:R-6,R-10,RX-,OX-,NX-,CX-,DX-

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ATTACHMENTHMordecaiCACAreaPropertiesThatWouldPermitAccessoryDwellingUnits*ZoningDistrictsthatwouldpermitADUs:R-6,R-10,RX-,OX-,NX-,CX-,DX-,IX-(underfinalUDOproposal)

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ATTACHMENTIMordecaiPlaceHistoricDistrict