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HomeMy WebLinkAboutAgenda Statement 1986/06/03 Item 10 COUNCIL AGENDA STATEMENT Item 10 Meeting Date -5124146H 6 -3- , ITEM TITLE: Public Hearing: PCA-86-4; Consideration of amendment to Municipal Code to prohibit the conversion of a residential garage unless it is replaced with another garage Ordinance -2/51 Amending the Municipal Code to require a replacement garage SECOND READING AND ADOPTION SUBMITTED BY: Planning Director f REVIEWED BY: City Manager io } '' (4/5ths Vote: Yes No X ) In April , 1985, the City Council directed staff to return with a report and recommendation regarding whether garage conversions should be prohibited in the City. The Council considered the report on March 25, 1986, and adopted a motion directing staff to prepare an amendment to the garage conversion provisions of the Municipal Code with a referral to the Planning Commission for their recommendation. RECOMMENDATION: That Council concur with the recommendation of the Planning Commission. BOARDS/COMMISSIONS RECOMMENDATION: On April 23, 1986, the Planning Commission, by a vote of 5-1 with one absent, found that the project would have no significant environmental impacts and adopted the Negative Declaration issued on IS-81-10, which is herewith forwarded for Council review, and adopted Resolution PCA-86-4 recommending that the Council enact an ordinance amending the Municipal Code as shown in Exhibit A attached hereto. DISCUSSION: Environmental An Initial Study, IS-81-10, of possible adverse environmental impacts of the project was conducted by the Environmental Review Coordinator in conjunction with an earlier, identical proposal . The Environmental Review Coordinator concluded that there would be no significant environmental effects and recommended that the Negative Declaration be adopted. Present parking and conversion requirements The zones which presently require a two car garage are the R-E, R-1 , and R-2 zones. In addition, single-family, two-family, and in some cases condominium developments in the P-C zone are required to provide garage parking. Page 2, Item 10 Meeting Dated ` - 3-kea The R-E, R-1 and R-2 zones authorize the conversion of an existing garage if two replacement off-street parking spaces are provided. These can be located within the required front yard setback area--normally the driveway--if the Zoning Administrator finds they do not obstruct vehicular or pedestrian traffic. The conversion itself must be compatible in design and materials with the existing dwelling, and must be accompanied with a modest amount (80 sq. ft.) of replacement storage space. Conversion of garages within the P-C zone has typically been prohibited by the development standards. Garage conversions are also prohibited by the CC&R's as a condition of City approval for PUD' s and lot splits without street frontage. History of parking and conversion requirements Covered parking for single-family development has been required since 1961 . Following is a brief history of the covered parking and conversion requirements: Prior to 1961 : No parking required 1961-1964: Two spaces required, one of which had to be in carport or garage. 1964-1966: Two-car garage required, 400 sq. ft. minimum. 1966-1969: Two-car garage required, conversion allowed only if garage replaced. 1969-1976: Major amendments to the Zoning Ordinance in 1969 included a provision allowing for garage conversions without providing a replacement garage. Ordinance is in effect at present. 1976-Present: In 1976, the Council initiated an amendment to again require a replacement garage, but changes to the amendment as a result of controversy resulted in only a minor revision regarding design compatibility. 1980: In 1980, the Planning Commission proposed and supported (5-0, two absent) an amendment to require a replacement garage. The Council noted and filed the recommendation by a 3-2 vote. Parking and conversion requirements of other jurisdictions A survey was conducted to determine the regulations of other jurisdictions within the region regarding initial parking requirements and garage conversions. The attached table outlines the results of the survey. In summary, the table indicates the following: c"/ / ) Page 3, Item Meeting Dat (7-3/ 1 . All jurisdictions require a minimum of two off-street parking spaces with initial construction; twelve require a garage, and five require something less; i .e. , carport, open parking, or a combination of the two. 2. All but one jurisdiction (Oceanside) allows conversion of the parking if replacement parking is provided. Of those jurisdictions which require a garage initially, seven require a replacement garage, while only two--Chula Vista and Santee--allow replacement with open parking. 3. Of all regional jurisdictions, only Chula Vista allows replacement parking to be located in the required front yard setback (normally the driveway) . Other agencies have considered a number of variance requests to park in the required front setback with the conversion, but they report that the vast majority of these are denied. ANALYSIS: Present City regulations make it relatively easy and inexpensive for a homeowner to convert the garage since Chula Vista alone allows replacement open parking to be located in the required front yard setback (15 feet back from the front property line) subject only to a finding by the Zoning Administrator that there would be no obstruction to vehicular or pedestrian traffic. In most instances, the existing setbacks of the residence and garage preclude the placing of parking behind the required front setback, and thus parking within the front setback on the existing driveway has been allowed (the typical driveway being 22 feet in length measured from the back of the sidewalk to the garage door). There appears to be little argument about the desirability of requiring enclosed garages in the new construction of single family and duplex units in the City. That being the case, it seems illogical to have another section of the ordinance which allows the conversion of that garage to living space without a replacement solution. If the requirement for a garage is considered to be valid with initial construction, it is staff's conclusion that such requirement should continue through the life of the building. The conversion of a garage to living space with parking in the front yard area tends to have two detrimental effects on the immediate neighborhood: 1 . Cars are forced to park either in the driveway or on the street so that an otherwise pleasant streetscape becomes cluttered. This is particularly true if several homes on a street convert the garages. 2. The increased on-street and driveway parking resulting from garage conversions tends to further impair sight distance of adjacent driveways. The parking of additional cars on the street obstructs the view of the pedestrians on the sidewalk or crossing the street, resulting in a greater chance of a motorist/pedestrian conflict. Page 4, Item Meeting Date G43/d4 The requirement to construct and maintain a garage does not guarantee that cars will utilize the space. However, the conversion of the garage does guarantee that the cars will be parked on the driveway or in the street. The garage also provides for substantial storage space including the placement of a washer and dryer. A further point is equity and consistency. As previously noted, Chula Vista's conversion regulations are the most permissive in the region because of the ability to locate replacement parking in the required front setback. Also, all newer developments within planned communities, PUD' s, etc. have been prohibited from converting garages. Thus, amending the ordinance to prohibit garage conversions unless a replacement garage can be provided is both equitable and consistent with the general regional practice and local practice for newer developments. As an alternative, the City could allow open parking rather than the construction of a replacement garage, with the stipulation that such parking be located behind the required front setback line (15 feet back from the front property line). This would partially address the problems of clutter and sight distance by providing the opportunity to park cars farther back from the street frontage--behind the required front setback in either extra-long driveways or paved portions of the front yard, or in side or rear yard areas. It would also bring Chula Vista in line with all other County jurisdictions in terms of the front setback restriction. This alternative has the potential of allowing certain property owners the continued possibility of increasing their living space at a minimum cost. However, the demand for additional living space is many times concentrated in the older areas of the City which are characterized by smaller homes. In these areas, the size of the lot along with existing front and side yard setbacks are such that relatively few property owners would be able to provide the open parking spaces behind the required front setback line, and thus the opportunity to convert would remain extremely limited. Furthermore, garage conversions tend to have a negative effect on property values due to additional parking of cars in the driveway and on the street. This is especially true if a number of conversions are concentrated in one area. Therefore, even though the individual homeowner may enjoy an immediate savings, in the long run it is likely to be at the expense of his property value and that of his neighbors and the community as well . Finally, Chula Vista's regulations regarding building additions in the rear yard is more permissive than in most jurisdictions. A single story addition can be built to within 10 feet of the rear property line, so that most homeowners desiring additional living area do have an opportunity to expand to the rear of the house. Page 5, Item 10 Meeting Dates 6 - 3-8-,C CONCLUSION: While a case can be made for the retention of the present permissive regulations governing garage conversion in terms of the convenience and short term financial advantage for the homeowner, the arguments for requiring a replacement garage are more persuasive from an overall city planning and safety standpoint. Inevitably, garage conversions lead to more paving of front yards and additional on-street parking which tends to clutter a residential area, and conversion of a number of garages in a neighborhood tends to be an early indicator of neighborhood decline. Because of these factors and the fact that few property owners would benefit from open parking behind the front setback, staff recommends approval of the replacement garage requirement. WPC 2825P / Pe- a of Chu gated _ ' Dated _ °Z7 �"""`� ' negative declaration -- PROJECT NAME: Zoning Text Amendment - Garage Conversions PROJECT LOCATION : City of Chula Vista • _PROJECT APPLICANT: City of Chula Vista Planning Dept. P.O. Box 1087 Chula Vista, CA 92012 CASE NO. IS-81-10 DATE: September 8 , 1980 A. Background On July 16 , 1980 the Planning Commission conducted a study session in which the present regulations of the Zoning Ordinance regarding garage conversions were discussed. At this meeting the Commission directed the Planning Department to propose an amendment to the City Code which would require a replacement garage if an existing garage is converted so as to preclude its use for parking. B. Project Description The following amendments to Title 19 of the Municipal Code are proposed: Amend Section 19.62.170 and 19.62.190 to read as follows : 19.62.170 Residential parking--Two car garage requirement-- Intent and purpose. It is the intent of this section and Sections 19.62.180 and 19.62.190, to require that all dwelling units in the A, R-E, R-1 and R-2 zones as well as single family and two family developments in the P-C zone shall al.se have constructed on the same lot as a necessary and essential accessory building to the residential use of said lot, a two-car enclosed garage containing a minimum of four hundred square feet and minimum dimension of twenty feet. The purpose of said requirement is to provide adequate off-street parking so as to alleviate the congestion on residential streets and space for the necessary storage of materials in an enclosure . Said enclosed garage or appropriate carport, as provided herein , is necessary to protect the general welfare of residential areas by preventing the establishment of parking spaces in an open parking lot situation inappropriate to residential develop- ment and the open and disorderly -display of gardening equipment, tools, boxes and other materials which would be stored in enclosures to avoid an unsightly appearance. city of chula vista planning department environmental review section C Y' • 2 � . 19.62.190 Residential parking--fwe-ear garage requ4rement--Procedure for conversion to living purposes--Approval required . Prior to the issuance a building permit for the conversion of any existing two-ear. garage for living purposes , the property owner desiring such conversion shall be required to preuide meet the following conditions and appreva1s : A. A new enclosed garage shall be provided to replace the garage being converted and shall contain not less than the same number of parking spaces . A two-car garage shall be as set forth in Section 19.62.170 and a one-car garage shall have a minimum area of 200 sq. ft. and minimum dimensions of 10 feet by 20 ft. Two paved off-street parking spaees with minimum diiens}ens of ten feet by nineteen feet for eaeh of said parking spaees shall be leeated in back of the front yard setbaeks- provided hewever; that the front yard setbaek area nay be used to aeeeffedate the required off-street parking if the plans for said parking spaees are approved by the zoning administrater- The zoning adfinistrater sha44 exaf4ne said plans to insure that the parking as proposed does net ereate any ebstaeles to vehieu4ar er pedestrian tra fie and weuld net be detrifflental to the surrounding neighborhood, if the zoning administrater disappreves the parking plans; the property owner Kay file an applieatien for a,varianee as provided 4n this ehapter- Tandem parking as provided in this chapter will not satisfy the parking requirements. B. A new carport or garage shall be provided to replace the existing carport being converted and shall contain not less than the same number of parking spaces. • Proper ene4esed storage spaee: The required storage unit shall eeRta4R a f}Rimum of eighty square feet of f;eer area for two-ear garages-and forty square feet for one-ear garages; and shall be ne less than six feet high; with ne ether diiens}en less than four feet; and shat; have direet exterior aesess- C. All plans for the conversions of existing garages for living purposes , as well as plans for new garages or carports , shall be submitted to the planning department for approval , to insure that the conversion is compatible in design and materials with the existing dwelling . Plans for garage conversions shall • show either= fully alter the exterior of the garage to match the existing house elevation in colors , materials and trim. 1. The exter4er of the garage uRehaRgedi er 2. The exterier of the garage fuiiy altered to Rateh the ex}sting house elevatien iR eel-ors-5 materials; and trim- Additions Deletions • 3 ( .. O C. Compatibility with zoning and plans The proposed ZTA is not inconsistent with the Chula Vista Zoning Ordinance and isrot at variance with the General Plan or associated elements . D. Identification of environmental effects Social The proposed ZTA will restrict the ability of many property owners to convert their garage into a living area due to the lack of access and available building area for a replacement garage. This means of adding living area to existing single family homes in some cases , has been more economical and convenient than adding a new room. The primary social impact will be increased homewoners financial costs associated with adding residential floor space either through conversion or adding on in. lieu of conversion. As experienced between 1966 and 1969 , when a replacement garage was required to convert an existing garage , a large number of . illegal garage conversions occured and could be expected to occur with the proposed ZTA. Since no building inspection would be , achieved with illegal conversions , the potential for safety hazards relating to wiring, plumbing or structural alterations could exist. Strict enforcement code designed at informing the public and citing violations could reduce the potential for illegal garage conversions . Energy Resources The requirements of constructing a replacement garage in order to convert an existing garage will encourage additional depletion of construction and energy resources , although the amount anticipated is considered insignificant. E. Findings of insignificant impact 1. The project is not site specific, therefore will not adversely affect any natural or man-made resource . 2 . The proposed amendment is not inconsistent with the General Plan or associated elements and short term goals will not be achieved to the disadvantage of long term environmental goals. 3. The proposed zoning text amendment is not anticipated to result in any adverse impacts which could interact to create a substantial cumulative effect on the environment. • 4 • 4 . The proposed ZTA is anticipated to reduce parking within residential front setback areas and increase the quality of the residential environment. F. Consultation 1. Individuals & organizations City of Chula Vista D. J. Peterson, Director of Planning Shabda Roy, Assoc . Eng. Gene Grady, Director of Bldg: & Hsg. Armando Livag, Assoc. Planner 2. ' Documents Chula Vista General Plan & Elements Title 19 of theChula Vista Municipal Code • • • The Initis1 f1tIndy .',n;:1 Lc.: �. ion and ''valuation t:orris documenting the findirmq of no ; i(rn i. t LCant ir,:n;ict e rr on . file and available for puhlis review at t her (:hula ‘.'if-;ta Planning P.'pt . , 276 4th avenue , Chula Vista , CA '12010 . cOde44' ' opy ENVIRIV..TAL REVIEW CCORDI:.ATOR city of chula vista planning department environmental review section EN 6 '