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Planning Comm PKT 11-08-2006 November 8, 2006 7:00 p.m. Commissioners Hope Elder, Chair Dave Osaki Merle Pfeifer Pam Duncan-Pierce City of Federal Way PLANNING COMMISSION City Hall Council Chambers AGENDA 1. CALL TO ORDER 2. ROLL CALL 3. APPROV AL OF MINUTES .4. AUDIENCE COMMENT 5. ADMINISTRATIVE REPORT 6. COMMISSION BUSINESS . ELECTIONS . PUBLIC HEARlNG Flag Lots Code Amendment 7. ADDITIONAL BUSINESS 8. AUDIENCE COMMENT 9. ADJOURN Dini Duclos, Vice-Chair William Drake Lawson Bronson Richard Agnew (Alternate #1) City Staff Kathy McClung, CDS Director Margaret Clark, Senior Planner E. Tina Piety, Administrative Assistant 253-835-2601 "'11"'. citvoffedera I",av. COII/ K:\Planning Commission\2006\Agenda II.08.06.doc CITY OF FEDERAL WAY PLANNING COMMISSION October 18, 2006 7:00 p.m. City Hall Council Chambers MEETING MINUTES Commissioners present: Hope Elder, Dave Osaki, Dini Duclos, Merle Pfeifer, Bill Drake, Pam Duncan-Pierce, and Lawson Bronson. Commissioners absent: none. Alternate Commissioners present: Richard Agnew. Alternate Commissioners absent: none. Staff present: Economic Development Director Patrick Doherty, City Attorney Pat Richardson, and Administrative Assistant E. Tina Piety. Chairperson Elder called the meeting to order at 7:00 p.m. ApPROV AL OF MINUTES Commissioner Duclos moved and it was seconded to adopt the August 16, 2006, minutes. The motion was carried. AUDIENCE COMMENT None ADMINISTRATIVE REpORT Ms. Piety informed that Commission that since the City Council will be holding a budget meeting November 1 S\ the next Planning Commission meeting will be a special meeting on November 8,2006 (it is a special meeting because it is not being held on a regularly scheduled meeting day). She also remirided them that a Planners ShQrt Course will be held November 15,2006. The Short Course will start at 6:30 p.m. COMMISSION BUSINESS PUBLIC HEARING - City Center-Core Height Limits Code Amendment Mr. Doherty delivered the staff presentation. The proposed change is to allow greater maximum height for structures containing residential dwelling units from the current limit of 85 feet to either 145 or 200 feet. Commissioner Bronson asked why the city should allow residential buildings to be taller than hotels. Mr. Doherty replied that currently, the maximum height for residential is much lower than for commercial. The City Council considered this issue and concluded that there may be more potential for residential developments than for hotels. It was noted that all residential development in the City Center-Core would be part of a mixed-use development. Commissioner Osaki commented that on figure 5 of the City Center Planned Action Final Environmental Impact Statement (EIS), three alternatives are listed and for Alternates I and 2, the total number ofresidential units is 750. Does the proposed change in height make any difference' on the number of units anticipated to 2014? Mr. Doherty responded that the growth assumptions are not dependent on the proposed height limit change. Staff believes it is possible to meet the growth assumption with or without the proposed height change. It is believed that the proposed height change would give a greatet'incentive to developers. K:\Planning Commission\2006\Meeting Summary) O-I.8-06.doc October 18, 2006 Planning Conunission Minutes Page 2 Commissioner Osaki asked how many more units are anticipated at the proposed 200 foot height limit as opposed to the proposed 145 foot height limit. Mr. Doherty replied that the proposal was not analyzed that way, especially since there is no density limit in the City Center currently. It is more a redistribution of units as opposed to have more units (such as larger units). The proposed height limit change would offer greater choice. Commissioner Drake asked what drives the proposed limitation of the floor plate above 145 feet to no more than 80 percent of the area of the floor plate immediately below the l45-foot level (80 percent "taper" clause). Mr. Doherty replied it is mainly aesthetics. Commissioner Drake then commented that he is concerned this requirement could turn away potential development. Commissioner Drake asked if the city was considering increasing the height for commercial development in the CC-C. Mr. Doherty replied that it was not considered as part of the City Center Planned Action EIS. If the city was to consider increasing the height for commercial development in the CC-C, it would require another EIS to address the impacts. Commissioner Drake moved to approve the staff recommendation of increasing the height limit in the CC-C to 200 feet maximum for structures containing multifamily dwelling units, but to not include the proposed upper-level bulk limit (the 80 percent "taper" clause). The motion was seconded. Chairperson Elder called for a roll-call vote, results of which were: Elder - yes; Duclos - yes; Drake - yes; Bronson - no; Osaki - no; Pfeifer - yes; and Duncan-Pierce - no. The motion carries. ADDITIONAL BUSINESS The Commission discussed their concerns about increasing the height for commercial buildings in the CC-c. It seems to them that a lower height limit for commercial could limit development. Mr. Doherty commented that the Commission could suggest the City Council place this issue on the Planning Commission work program. He also stated that it is common for cities to have different height limits for different uses in order to encourage more of one type of development. Chairperson Elder stated she would talk to the LUTC chair about this issue and the Commissions concerns. Commission Bronson stated that the Commission's Rules of Procedure state that elections will be held the first meeting in October. Ms. Piety commented that the City Council will be appointing Commissions for those terms that expired September 2006 on November 7,2006, and elections will be held the first Planning Commission meeting after this (November 8, 2006). AUDIENCE COMMENT None ADJOURN The meeting was adjourned at 8:08 p.m. K:\Planning Conunission\2006\Meeting SUT1lJTlalY 10-18.06.doc CITY OF Federal Way STAFF REPORT TO THE PLANNING COMMISSION Proposed Flag Lot Development Standards Amendments to Federal Way City Code (FWCC) Chapter 22 Article I, "Definitions," Article XI, "District Regulations" (Single-Family Residential RS and Multifamily Residential RM Zoning Charts), and Article XIII, "Supplementary District Regulations" File No. 06-10S0S9-00-UP / 06-10S060-SE Public Hearing of November 8, 2006 I. BACKGROUND The Community Development Services pepartment staff is proposing amendments to the zoning code (Federal Way City Code [FWCC] Chapter 22) in order to clarify how "flag lots" are defined, and how typical setback requirements are to be applied to proposed single-family development on flag lots. The City of Federal Way zoning code does not currently provide specific direction as to how lot size and lot coverage calculations are determined for flag lots, nor how front, side, and rear setback requirements are to be applied to these irregularly shaped lots. In addition, staff is proposing new language in the single-family (RS) and multifamily (RM) use zone charts to clarify how setback requirements are applied to corner lots. Pursuant to FWCC Section 22-520(b), the City Council may review city-initiated changes to the text of the zoning code from time to time at the council's discretion. The Planning Commission is being asked to review the proposed changes to the zoning code and forward a recommendation to the city council. The following staff-proposed zoning text amendments are addressed in this staff report: 1. Modify FWCC Section 22-1 to add definitions for "flag lot," "lot area," and "pan handle lot"; and modify existing definitions for "primary vehicular access" and "property line" (Exhibit A). II. Modify FWCC Section 22-1 to add graphics illustrating the application of setback requirements to flag lots (Exhibit B). m. Modify FWCC Section 22-631, use zone chart for detached dwelling units in RS zone, to clarify side-yard setbacks for corner lots and add a note regarding calculation of lot coverage for flag lots (Exhibit C). IV. Modify FWCC Section 22-648, use zone chart for accessory dwelling units in RS zone, to clarify side-yard setbacks for corner lots and add a note regarding calculation of lot coverage for flag lots (Exhibit D). V. Modify FWCC Section 22-666, use zone chart for detached dwelling units in RM zone, to clarify side-yard setbacks for corner lots and add a note regarding calculation of lot coverage for flag lots (Exhibit E). Flag Lot Development Standards - Code Amendments Planning Commission Staff Report File #06. I 05059-00-UP / Doc ID 38628 Page I VI. Modify FWCC Section 22-667, use zone chart for attached, detached, and stacked dwelling units in RS zone, to clarify side-yard setbacks for corner lots and add a note regarding calculation of lot coverage for flag lots (Exhibit F). VII. Modify FWCC Section 22-955 to clarify that the "flag pole" portion of a flag lot is not considered in lot coverage calculations (Exhibit G). Summary of Findings and Recommendations · The City of Federal Way is experiencing numerous requests for subdivision of parcels into flag lots where one or two parcels are located behind a lot with traditional right-of-way frontage. These flag lots are accessed via an access easement or driveway. · The City of Federal Way currently does not have a definition of flag lot in the zoning code. · The FWCC does not currently address how front, side, and rear yard setback requirements are to be applied to flag lots (lots that are not adjacent to a right-of-way). · The FWCC does not currently specify how front, side, and rear yard requirements should be applied to corner lots (lots that are adjacent to more than one primary vehicular access). · Application of a maximum lot coverage calculation for flag lots is not addressed in the FWCC. · Currently, application of setback and lot coverage requirements for development of flag lots is handled administratively on a "case-by-case" basis. This translates into more review time for staff, as well as a sense of uncertainty for the applicant. · Modifying FWCC Chapter 22 to add a definition for flag lots and lot area, and modifying existing use zone charts to clarify how setback and lot coverage requirements shall be applied to flag lots, will lend greater predictability to the application of development standards for flag lots in future development proposals. · Modifying FWCC Chapter 22 to modify the existing definition for property line and modifying existing use zone charts to clarify how setback requirements shall be applied to corner lots will lend greater predictability to the application of development standards for corner lots in future development proposals. ll. PROPOSED CODE AMENDMENTS A. Recommended Amendments to Article I Definitions (Exhibit A) The attached Exhibit A provides draft language for a proposed definition of flag lot. Since the term "panhandle lot" is also commonly used to describe the same type of lot configuration, it is recommended that a listing for panhandle lot be added to the definitions section with a cross- reference to flag lot. A new definition of "lot area" is proposed that clarifies that the access easement or "flag pole" portion of a flag lot is not considered in calculating minimum lot area. Flag Lot Development Standards - Code Amendments Planning Commission Staff Report File #06-I05059-00-UP I Doc ID 38628 Page 2 A modification to the definition of "primary vehicular access" is proposed to include "vehicular access easement or private tract" in the definition. This is necessary as it relates to how setback requirements are determined for flag lots. A modification to the existing definition of "property line" is proposed that will clarify how front, side, and rear setback requirements are to be applied to corner lots and flag lots. B. Recommended Exhibit to Illustrate Flag Lot Setbacks (Exhibit B) A draft exhibit has been prepared that illustrates how the proposed setback requirements are to be applied to flag lots. The different examples are provided to address the potential relationship between flag lot configuration and the right-of-way the flag lot is connected to via an access easement or driveway. Where a flag lot is created with access via easement or driveway to an arterial or primary collector, "Lot I," as depicted in the examples, must be accessed via the access easement that also serves as the driveway for the flag lot. Where the flag lot is not connected to an arterial or primary collector, then Lot 1 may be accessed either via the adjacent right-of-way, or via the access easement that also serves the flag lot. The last example shows how access is provided to lots where a flag lot is the third lot back from the street. This configuration. is only possible where Lot 1 fronts a street that is not designated an arterial of primary collector. This is because Lot 1 must have direct access to the adjacent street. No more than two lots (in this case Lots 2 and 3) may have access from the access easement. In each example, the front yard is considered to be the yard that fronts the "primary vehicular access." C. Recommended Modification to Existing Use Zone Charts to Clarify Setback Requirements for Flag Lots and Corner Lots, and Clarify Lot Coverage Requirement for Flag Lots (Exhibits C-F) The proposed modifications to existing use zone charts for single-family and multifamily development provide clarification as to how side-yard setbacks are calculated for corner lots. Side yard setbacks for the portion of the lot adjacent to a right-of-way that is not utilized as the primary vehicular access is 10 feet. Otherwise the traditional five-foot side yard setback will apply. The second proposed change to the use zone charts is a note that cross-references Section 22- 955 for calculating lot coverage for flag lots. D. Recommended Modification to FWCC Section 22-955 to Clarify Lot Coverage Calculation for Flag Lots (Exhibit G) The last proposed modification is to add language to Section 22-955, "Calculating Lot Coverage," that clarifies that the flag pole portion of a lot will not be considered in determining compliance with the maximum lot coverage calculation. Flag Lot Development Standards - Code Amendments Planning Commission Staff Report File #06-I05059-00-UP I Doc ID 38628 Page 3 Staff recommends that the following be recommended for approval to the City Council: 1. Amendments to FWCC Section 22-], "Definitions," to add a definition of flag lot and lot area, and modify definitions for primary vehicular access, and property line; 2. An amendment to FWCC Section 22-1, "Definitions," to add an exhibit illustrating how setback requirements shall be applied to flag lots; 3. A modification to FWCC Sections 22-631, 22-648, 22-666, and 22-668 to clarify side-yard setbacks for corner lots and add a note regarding calculation of lot coverage for flag lots; and 4. A modification to FWCC Section 22-955, "Calculating Lot Coverage," to establish that the portion of a lot that is located within the flag pole or access panhandle part of the lot will not be used or considered in determining compliance with the maximum lot coverage requirement. IV. REASON FOR PLANNING COMMISSION ACTION FWCC Chapter 22, "Zoning," Article IX, "Process VI Review," establishes a process and criteria for zoning code text amendments. Consistent with Process VI review, the role of the Planning Commission is as follows: 1. To review and evaluate the zoning code text regarding any proposed amendments. 2. To determine whether the proposed zoning code text amendment meets the criteria provided by FWCC Section 22-528. 3. To forward a recommendation to City Council regarding adoption of the proposed zoning code text amendment. V. DECISIONAL CRITERIA FWCC Section 22-528 provides criteria for zoning text amendments. The following section analyzes the compliance of the proposed zoning text amendments with the criteria provided by FWCC Section 22-528. The City may amend the text of the FWCC only if it finds that: 1. The proposed amendment is consistent with the applicable provisions of the comprehensive plan. The proposed FWCC text amendment is consistent with the following Federal Way Comprehensive Plan (FWCP) goals and policies. The request complies with the following goals: LUP 16 - Revise existing land use regulations to provide for innovation and flexibility in the design of new single-family developments and in-fill. HG 1 - Preserve and protect the quality of existing residential neighborhoods and require new development to be of a scale and design that is compatible with existing neighborhood character. Flag Lot Development Standards - Code Amendments Planning Commission Staff Report File #06-105059-00-UP / Doc ID 38628 Page 4 2. The proposed amendment bears a substantial relationship to public health, safety, or welfare. The proposed FWCC text amendment bears substantial relationship to the public health, safety, and welfare because it provides for setback and minimum lot size requirements that will ensure adequate and consistently-applied building separation and buildable lot area requirements for flag lot development within single-family neighborhoods. 3. The proposed amendment is in the best interest of the residents of the City. Approval of the proposed code amendment would benefit the City as a whole as it would help ensure that flag lot development fits in more effectively with traditional single-family lot configurations where each lot has direct access to the adjacent right-of-way. VI. PLANNING COMMISSION ACTION Consistent with the provisions of FWCC Section 22-539, the Planning Commission may take the following actions regarding the proposed zoning code text amendments: 1. Recommend to the City Council adoption of the FWCC text amendments as proposed; 2. Modify the proposed FWCC text amendments and recommend to the City Council adoption of the FWCC text amendments as modified; 3. Recommend to the City Council that the proposed FWCC text amendments not be adopted; or 4. Forward the proposed FWCC text amendments to the City Council without a recommendation. VII. EXHIBITS Exhibit A - Proposed Modified FWCC Section 22-1, "Definitions": flag lot, lot area, pan handle, property line, and required yards Exhibit B - Proposed Setback Requirements for Flag Lots Exhibit C - Proposed Modified Use Zone Chart FWCC Section 22-631 Exhibit D - Proposed Modified Use Zone Chart FWCC Section 22-648 Exhibit E - Proposed Modified Use Zone Chart FWCC Section 22-666. Exhibit F - Proposed Modified Use Zone Chart FWCC Section 22-667 Exhibit G - Proposed Modified FWCC Section 22-955, "Calcl1lating Lot Coverage" Flag Lot Development Standards - Code Amendments Planning Commission Staff Report File #06-1 05059-0Q-UP / Doc ID 38628 Page 5 EXHIBIT A FEDERAL WAY CITY CODE Chapter 22 22-1 Definitions F/a,? lot or "oanhandle lot" means a platted lot in the shaDe of a flag or Dan that is connected to the road or street right-of-way by a narrow strip of land. The narrow strio of land connecting the main oortion of the lot to the road or street right-of-way is the "flag pole" or "access l>anhandle" part of the lot. Lot area means the minimum lot area per dwelling unit based on the underlying zone. For single family lots. the area of a vehicular access easement. private tract. "flag pole." or "access panhandle" shall not be credited in calculation of minimum lot area. Pan handle lot means flag lot. Primary vehicular access means the majef street. vehicular access easement. or orivate tract from which the majority of vehicles enter the subject property. Property line means those lines enclosing the subject property and those lines defining a recorded vehicular access easement or tract. The following are categories of property lines: (l) The &oat praperty liRe is aHY praperty liRe that is adjaeeRt ta a right af ...lay which is more than 21 :feet iR width, exeluwRg IAterstate 5. Ifthe suejeet praperty is adjaeeAt to mare thaH aRe right af way whieh is mare tha8 21 feet iR '1IiEkh., the ~plieaHt shall ElesigRate wmeh af the adjaeeRt propetty liRes is the &oAt property liRe aHa the remaiRaer af slieh aajaeeAt property liRes will Be eORsidereEl as either a rear praperty liRe or side praperty liRe, Based OR the aefinitiaR ia this seetieR. If the subjeet property is Rat aEljaeeAt to a right of way whieh is mare thliR 21 feet iR vlidth, theR the HeAt pr-operty liRe is the propetty liRe adjaeeRt ar priReipaHy arieftted ta the street praviEliRg primary vehieular aeeess te the sUBjeet property, as determiRed BY the direetar of the deplH1m.eRt of eemmuRity de";elepmeRt. The front property line is any prooerty line that is adjacent to a primary vehicular access. If the subject property is adjacent to more than one primary vehicular access. the applicant shall designate which of the adiacent oroperty lines is the front property line and the remainder of such adiacent property lines will be considered as either a rear property line or side orooerty line. based on the definition in this section. except the oroperty line adjacent to an arterial or primary collector shall not be designated as a l>rimary vehicular access. (2) For flag lots. the yard setbacks shall be the same as the underlying zone setbacks. exceot the front yard setback area shall be apolied per Exhibit B. ~ ill The rear property line is any property line that is farthest from, and essentially parallel to, the front property line. t31 ill The side property line is any property line other than a front property line or a rear property line. Macintosh HD:Users:janet:Documents:Microsoft User D8lIl:Saved Attachments:Definitions.doc Driveway for Lot 2/ Access Easement for Lot 1 R= S' r----------------------I ~ , III I ~I 1;:::0 I Lot 2 '" L - - 1 Iu:! I I F= I I 20' t - - - - - - - 5 ~ s' - - - - - - - - - I 5- S' r---------------- I I , I "T1 I 1;::0 '" Lot 1 I" N I 'en C! I I ~ l_______________~ 5 = 10' Or r----------B~~---------, enl , III I u:!1 l:::u I Lot 2 I" I I,,! ~: I ~o~ 1 : n -- n -- n n - -- -- --: 5- S' , _ _ _ _ _ _ _It =_S:' _ _ _ _ _ _ _ _ _ I I I ~I I~ ~I Lot 1 I~ ~ I I . ,_ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __, F = 20' Not an arterial ------------- or primary collector Driveway for Lot 2 Exhibit B Flag Lot Setbacks r - - - -' - - - - - - _R_= "S'_ - - - - - - - - , . en' I III I U11 I "I Lot 2 I~ 1_ _ _ I '", (-.-.....) I I" ~o~ 1 : - n - - -- n_ -, - - -- n -- -: r----s=~--------, , , I I ." I Lot 1 I~ ~ I III C! I IO! 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"1 a- a- .; '7< ..,; o ,.., <- <>;' .... .;. ,.; "'" ..; ~ <- a- ,; '7< ..,; o '" <>;' ~ .;. ~ ! <- "'" a <- .... .;.. a- ,; '7< ~ ~ ,:. ... 15 '~ if> ~ ~ i .., " ~ if> ~ Cl i ;:> aa % ~ ~ " a ! '&i ,%- ~ ;:> ~ "S l! '9, ~ ..,; o ,..\ .S J:: 0 -d .~ ~ \ 'i ~ .g ~: fa)" .. ""'.. ...... ~~oo;::.g ~ c:~~~~ ~ -'d~~~~ dP la'II' ,.; a~~~~ 6 ;:i~~~~6 C' ~ ~C"I'l.-'" 0 \': ~ ~ e EXHIBIT G FEDERAL WAYCITYCODE Chapter 22 22-955 Calculating lot coverage. (a) General. Except as specified in subsection (b) of this section, the area of all structures, pavement and any other impervious surface on the subject property will be calculated as a percentage of total lot area, exclusive of the area of any recorded access easements, in determining compliance with maximum lot coverage required in this chapter. If the subject property contains more than one use, the maximum lot coverage requirements for the predominant use will apply to the entire development. (b) Exceptions. The following shall be excepted from the provisions of this section: (1) A wood deck will not be considered as an impervious surface for maximum lot coverage proposed if the deck is constructed with gaps between the boards and if there is a pervious surface below the deck. (2) A vehicular access easement,. ef Drivate tract. or that portion of a private driveway located within the "flag pole" or "access panhandle" Dart of the tHat serves m.ore tHIm one lot will not be used or considered in determining compliance with the maximum lot coverage requirement of this chapter. (3) One-half of the area covered with grass grid pavers will be considered as impervious surface in determining compliance with the maximum lot coverage requirement of this chapter. (Ord. No. 90-43, 92(115.90),2-27-90; Ord. No. 98-309, 9 3, 1-6-98) Macintosh HD:Users:janet:Documents:Microsoft User Data:Saved Attachments:Section 22-955.doc ~ ~ CITY OF' H^ . Federal Way Planning Commission Public Hearing Testimony Sign-Up Wednesday, November 8,2006 Flag Lots Code Amendments NAME ADDRESS (OPPONAL) A~~;(G7 C;~~~ 2-202 l' JOOl-7 -57 ~~/'tu4-" CJ4 Y'906.j j If you wish to give public testimony on this issue, please print your name and address. * Written Testimony is encouraged. *y ou may choose to provide an address to receive additional notifications about the topic on which you are speaking. This sign-in sheet is a public record, however, and may be required to be disclosed upon request. If you desire that your address be confidential, you may choose to not include it on this form; however, non-disclosure of address information may affect the \ weight Council members give your testimony (e.g, Council members may choose to give more weight to testimony from individuals with an address in Federal Way). K:\Planning Commission\Hearing Sign Up Sheet-doc