Loading...
HomeMy WebLinkAboutPZ Agenda Packet 10.18.2023PLANNING AND ZONING COMMISSION Wednesday, October 18, 2023 Formal Meeting – 6:00 PM Emma Harvat Hall Iowa City City Hall 410 E. Washington Street Agenda: 1. Call to Order 2. Roll Call 3. Public Discussion of Any Item Not on the Agenda Zoning Code Amendment Items 4. Case No. REZ23-0005 (continued discussion from 8/16) Consideration of an amendment to Title 14, Zoning to reduce the maximum allowable height in the Neighborhood Stabilization Residential (RNS-12) zone from 35-feet to 27-feet. 5. Planning and Zoning Information 6. Adjournment If you will need disability-related accommodations to participate in this meeting, please contact Anne Russett, Urban Planning, at 319-356-5251 or arussett@iowa-city.org. Early requests are strongly encouraged to allow sufficient time to meet your access needs. Upcoming Planning & Zoning Commission Meetings Formal: November 1 / November 15 / December 6 Informal: Scheduled as needed. Date: To: October 18, 2023 Planning & Zoning Commission From: Anne Russett, Senior Planner, Neighborhood & Development Services Re: Request to reduce height requirements in RNS-12 zone (REZ23-0005) Introduction The Northside Neighborhood Association asked the City Council to consider reducing the maximum allowable height in the Neighborhood Stabilization Residential (RNS-12) zone from 35 feet to 27 feet. At its June 6, 2023, work session, the City Council initiated the rezoning process by directing staff to prioritize the review of the proposed change. On August 16, staff presented this request to the Planning and Zoning Commission. Staff recommended denial. The Commission deferred the item to October 17 and requested that staff schedule another meeting with the neighborhood association to discuss the proposal. The Commission also requested additional information on the City’s historic preservation program. Staff met with three representatives of the neighborhood association on September 6. During the September 6 meeting, the neighborhood association representatives noted that they were interested in reducing the maximum allowable height only for new single-family and duplex uses. Also, they originally proposed a reduction to 27’, but based on our conversation it appeared they were open to other options to regulate height (e.g. 2.5 stories). Staff’s understanding of their main concerns are as follows: •The existing maximum height of 35’ provides a financial incentive for investors to demolish older, affordable, owner-occupied structures. •The 35’ height maximum encourages redevelopment to out-of-scale buildings that can harm neighboring properties. The example given was the proposed single-family home at 319 N. Van Buren Street. Staff continues to recommend retaining the current height for the reasons set forth in the August 16 memo (Attachment 1). Analysis This section is an update to staff’s original analysis included in the August 16 memo. This memo presents some additional information to consider regarding zoning code implementation, the effect of local historic and conservation districts, and redevelopment potential. Public Purpose The purpose of building height regulations is to promote a reasonable building scale and relationship between buildings. All land uses should be considered when establishing a height limit. Staff has concerns with having maximum allowable height limits that vary based on land use. First, because each zoning district may allow several different land uses, explaining the reason why they should be treated differently is necessary. For example, with the proposal, new single-family and duplex uses would be limited to 27’, but other land uses allowed in the zone (e.g. religious institutions, daycares) would remain subject to the 35’ maximum. If maximum allowable height varies between uses a governmental purpose for that variation October 10, 2023 Page 2 would need to be established. Staff has not identified a governmental purpose for such a change. Zoning Code Implementation The proposal also recommends that the 27’ height maximum only apply to new single-family and duplex uses. The proposal also poses some challenges when it comes to implementing the zoning code. For example: • Existing single-family and duplex uses would remain subject to the 35’ height maximum because the proposed change only applies to new structures – not existing ones. • New single-family and duplexes would be subject to the 27’ maximum. • Other land uses, such as religious institutions, would have a maximum height of 35’. This height maximum would apply to both existing and new religious institutions. Furthermore, when the RNS-12 zoning district was created, it outlawed multi-family uses. However, there already were many such existing uses present in the area. Therefore, special provisions were created to apply to those existing multi-family uses in order to avoid creating nonconforming uses through the rezoning process. Instead, the code allows existing multi-family uses to be demolished and rebuilt to the present density, but the building would need to meet all other dimensional standards, including height. This is a difficult provision to implement because the owner would need to prove that the multi-family use was conforming with regard to use and density under the previous zoning designation. The details of decades old defunct zoning districts are not readily available to the public or staff. It would also need to be determined whether applying the height limit of 27' to new construction is or is not intended to include additions to existing single-family and duplex structures. This is another complicating factor. Any rezoning ordinance supporting this change would need to clarify the maximum allowable height for additions. The City’s zoning code is already complicated, and the proposed changes would add to this complexity. The proposed amendment would mean that staff would have to implement different height requirements for different uses built at different times. This makes implementation even more complicated. Extent of the RNS-12 Zone Today, there are 500 properties city-wide zoned RNS-12. Of the 500 total city-wide properties zoned RNS-12, 375 (75%) are also regulated by a Historic District Overlay (OHD) or a Conservation District Overlay (OCD) zone. These overlay zones preserve properties that have been identified as important historic resources. The impact of the overlay zone regulations will be discussed in the next section. Of the 500 properties city-wide, 313 are within the Northside neighborhood. 266 (85%) of those within the Northside are also within a Historic or Conservation Overlay zone. Only 125 (25%) of properties citywide are zoned RNS-12 and not located within a OHD or OCD zone. 47 of these properties are located within the Northside neighborhood. In summary, there are few properties that are zoned RNS-12 and not located within an OHD or OCD zone. Figure 1 illustrates the boundary of the Northside neighborhood (in red), the location of properties zoned RNS-12, and properties located within a OHD or OCD zone. Table 1 provides a summary of this data. October 10, 2023 Page 3 Figure 1: Map of properties zoned RNS-12 October 10, 2023 Page 4 Table 1: Summary of Parcels Zoned RNS-12 City-wide Number of Parcels % of Parcels Neighborhood Stabilization Residential Zone (RNS-12) 500 100% RNS-12 with Historic or Conservation District Overlay 375 75% RNS-12 with No Historic or Conservation District Overlay 125 25% Northside Neighborhood Number of Parcels % of Parcels Neighborhood Stabilization Residential Zone (RNS-12) 313 100% RNS-12 with Historic or Conservation District Overlay 266 85% RNS-12 with No Historic or Conservation District Overlay 47 15% Historic Preservation Program The Iowa City Historic Preservation Plan was adopted by City Council in 2008. The Plan carefully and thoughtfully evaluated Iowa City’s historic buildings and neighborhoods and set forth a plan of action for their stewardship. Historic neighborhoods and buildings are protected by the designation of local historic districts, conservation districts, and historic landmarks. Designation provides for the careful management of these resources through the historic review process. The purpose of historic review is to preserve or conserve historic architectural resources by discouraging alterations that either destroy the unique characteristics of a building or alter the character of historic neighborhoods. Local historic and conservation districts are designated through a rezoning process that applies either a Historic or Conservation District Overlay (OHD/OCD). Historic District Overlays (OHD) are geographically cohesive areas with significant concentrations of buildings and other resources that possess a high degree of historic integrity and convey a distinct sense of time and place. The Zoning Code also outlines the OHD in section 14-3B-1 as intended to promote the educational, cultural, economic, and general welfare of the public by protecting, enhancing, and perpetuating historic landmarks and districts of historic, architectural, and cultural significance. An OHD is the City’s tool to safeguard historic buildings and neighborhoods throughout the community. The Code states that overlays also ensure a historic review of new construction or alterations of all properties in these areas to assure compatibility with the existing character of historic neighborhoods and preserve the historic integrity of the resources. As described in section 14-3B-2 of the City Code, Conservation Districts Overlays (OCD) are a geographically cohesive area that is similar to a historic district in character. However, because it has fewer properties that retain a high degree of historic integrity or contribute to a distinct sense of time and place, it does not currently qualify as a historic district. Because these areas are still considered worthy of protection, the City Council may designate them for conservation. OCD is intended to conserve the unique characteristics of older neighborhoods and resources, including their architectural, historical, and aesthetic qualities. Similar to OHDs, OCDs also require historic review of new construction and exterior alterations of all buildings within the OCD to assure compatibility with the existing character of older neighborhoods and preserve the historic integrity of the resource. Table 2 outlines the adoption dates for Conservation and Historic Districts existing within RNS- 12 zoned areas. October 10, 2023 Page 5 Table 2: Local Historic & Conservation Districts in areas with RNS-12 Zoning Location Local Designation National Register Governor – Lucas Street Conservation District May 2001 East College Street Historic District May 1997 July 1997 College Hill Conservation District May 2003 Northside Historic District May 2009 April 2005 Goosetown/Horace Mann Conservation District June 2014 Section 14-3B-3 Historic Review in the Zoning Code lays out the requirements for historic review. The historic review process is required when a material change to the exterior of a property within an OHD or OCD designation requires a regulated permit (e.g. electrical permit, building permit). The Historic Preservation Handbook, adopted by resolution and referenced within the Zoning Code, outlines guidelines that historic review applications are reviewed to. The guidelines address specific historic preservation issues and provide additional guidance to property owners and builders for the design of their projects. Examples of projects requiring historic review include: • New siding • Construction of decks and ramps • Replacement or addition of windows • Demolition of a garage or outbuilding • Porch construction, reconstruction, or replacement • Removal of porches, trim, brackets, chimneys, or defining architectural features • Additions Although some historic review applications can be reviewed and approved by City staff, major changes, such as new construction and demolition must be reviewed by the Historic Preservation Commission. New construction requires historic review when a new principal building or outbuilding is proposed. The Historic Preservation Commission must approve the new building prior to any building permit being issued. The projects are evaluated against the guidelines in the Historic Preservation Handbook, which are intended to ensure compatibility with the character of the neighborhood where construction is to occur. The New Construction guidelines outline recommendations for many types of architectural and exterior features such as, balustrades and handrails, façade, decks, setbacks, design, doors, windows, etc. With regards to building height the maximum allowable height is 35’ pursuant to the Zoning Code; however, the Historic Preservation Handbook includes specific guidelines related to building height and mass and states that “new structures must be one and a half or two stories in height” in the Northside neighborhood. While this is a guideline, any proposal for new construction within an OHD or OCD zone would be reviewed based on the surrounding neighborhood context and the building mass and scale of adjacent buildings and require review and approval by the Historic Preservation Commission. Demolition involves the complete removal of a building or a portion of a building. Removal of dormers, decorative trim, porches, balustrades, chimneys, and other significant features requires a building permit for demolition, and therefore historic review. The demolition must be approved by the Commission prior to issuance of a building permit. With regards to demolition, the Handbook only allows it where the building is structurally unsound and irretrievable. For non-contributing and non-historic properties requesting demolition, the Commission will consider the condition, integrity, and architectural significance of the building. In summary, the City’s historic preservation program is robust. The program helps to preserve, protect, and enhance historic and culturally significant properties throughout Iowa City. Because October 10, 2023 Page 6 most properties zoned RNS-12 are also zoned OHD or OCD (75%), it adds a large degree of protection from any future construction, demolition, or development changes in the future. Redevelopment Review Staff also reviewed demolition permits in RNS-12 zoning districts to identify redevelopment trends over time. This analysis has been updated slightly from the one presented in August to include information on when the demolitions occurred and the height of the new structures. Since 1992, the City had 17 residential demolitions in RNS-12 zones (excluding the demolition of a single-family home for a school playground that should be zoned P1). This averages approximately 1 demolition every 2 years over the past 31 years. Two of these from the 1990s are for uses that are no longer allowed. A full list of the demolitions of residential buildings can be found in Figure 2. The characteristics of these demolitions are summarized below. In addition, Figure 2 shows when demolitions occurred by year. Six of the 17 demolitions occurred prior to the land being rezoned to RNS-12. • 1 single-family demo to create vacant lot in 1992; remains undeveloped • 1 single-family demo to build parking • 1 duplex demo to build 4-plex (no longer allowed) • 1 group living demo to build 6-plex (no longer allowed) • 1 duplex demo to build a church • 3 demos for buildings damaged in natural disasters; one single-family redeveloped as a single-family, one single-family redeveloped as a duplex, and one multi-family redeveloped as a duplex • 4 single-family demos to build single-family (includes 319 N Van Buren) • 4 single-family demos to build duplexes • 1 duplex demo to build a duplex Additionally, staff looked at building plans to estimate height of the redeveloped buildings. Plans were found for 11 of the buildings that have been built. • 2 of the 11 are above 27’ in height. Both of these are for multi-family developments that would no longer be allowed in the zone. • 9 of the 11 are 27’ or less in height Figure 2: Demolition of Residential Buildings in RNS-12 Zones, 1992-2003 October 10, 2023 Page 7 Based on this, it does not appear that the maximum allowable height of 35’ acts an incentive for redevelopment or else more buildings would be closer to the height maximum. It may be an incentive for the development of multi-family residential, but doesn’t appear to be an incentive to redevelop in zones that only allow single-family and duplex uses. Overall, it appears that development pressure in the RNS-12 zone has actually decreased over time and redeveloping small single-family homes into large single-family homes is not common. This is likely due to 75% of properties zoned RNS-12 also being located within Historic and Conservation District Overlay zones, which restrict demolitions and involve Historic Preservation Commission review. Comprehensive Plan Analysis The Future Land Use Map of the Central District Plan includes a land use designation for Single-Family Residential Stabilization. The description for this designation is as follows: “Intended for older areas of the city where single family homes originally predominated, but due to subsequent changes in zoning have experienced an increase in housing density and some conversion to multi-family and group living uses has occurred. The intent of this designation is to preserve the single-family residential character that remains by preventing further densification and conversion of single family residences to multi-family. Development Density: varies depending on mix of single family and conforming and nonconforming multi-family and group living uses.” This land use designation is applied to large areas of the Northside neighborhood, portions of E. Market and E. Jefferson Streets, and areas of Lucas and S. Governor Streets south of Burlington Street. These areas generally correspond to the areas zoned RNS-12. As described in the adopted land use designation, the purpose of the designation is to “preserve the single-family residential character” by “preventing further densification and conversion of single-family residences to multi-family”. In summary, the goal of this land use category is to maintain a single-family neighborhood and restrict the number of units by limiting other housing types. The land use designation does not speak to the scale of development, but rather housing types and density. The scale of the development is regulated by height in the zoning code. There are many statements within the comprehensive plan related to infill development and ensuring that it is compatible and complementary to the surrounding neighborhood. The maximum allowable height in most residential zones is 35’, which implies it has already been determined that 35’ is a height that ensures a complimentary scale. Conclusions • While height limits are intended to prevent domination of adjacent properties, the City has traditionally found that 3 story building heights are appropriate in all areas containing single-family uses, including the RNS-12 zone. The purpose of the RNS-12 zone is to maintain a single-family character, which has been interpreted as preserving single- family uses, and preventing the spread of multi-family conversions and redevelopment. • The current height limitation is consistent with other single-family residential zones, thus serving the purpose of the RNS-12 zone to maintain the predominantly single-family neighborhood character. • The purpose of height regulations are to promote a reasonable scale and relationship between buildings. All land uses should be considered when establishing a height limit. October 10, 2023 Page 8 A public purpose justification must be identified for regulations, such as maximum heights, that vary based on land use. Alleviation of perceived redevelopment pressures and preservation of neighborhood character are not served by allowing uses to be constructed at varying heights. • Implementation of the zoning code must be considered. The proposed changes require staff to implement different height requirements for different uses built at different times. Staff does not recommend creating unnecessarily complicated regulations. • 75% of the properties zoned RNS-12 are located within a Historic or Conservation District Overlay zone. As the staff report outlines, new construction would be subject to historic preservation guidelines, and require review and approval by the Historic Preservation Commission. In short, 75% of properties within the RNS-12 zone are already subject to additional review processes that ensure new structures are not out of scale with the surrounding neighborhood. • Redevelopment pressures do not appear to be mounting in areas zoned RNS-12. Since 1992 there have been 17 residential demolitions in the RNS-12 zone (six of which occurred prior to the land being rezoned to RNS-12). This is an average of approximately 1 demolition every 2 years. This may be due in part to the large number of properties that are located within Historic and Conservation District Overlay zones, which restrict demolitions. • The purpose of the RNS-12 zone is not tied to historic characteristics or the scale of the development. For that purpose, the City has adopted Historic and Conservation Overlay areas and much of the area zoned RNS-12 is subject to those additional guidelines and requirements. For these reasons, Staff does not support the requested amendment to the zoning code, even as modified from the original proposal. Next Steps Upon recommendation from the Planning and Zoning Commission, the City Council will hold a public hearing on the proposed rezoning ordinance. Staff Recommendation Staff does not recommend approval of REZ23-0005, a proposal to change the maximum allowable building height from thirty-five (35) feet to twenty-seven (27) feet in the Neighborhood Residential Stabilization (RNS-12) zone for new single-family and duplex structures. As was noted above, staff has not identified a governmental purpose for having the maximum allowable height vary based on land use. If the Commission wants to recommend approval they would need to identify what the governmental purpose is for regulating height differently based on use. Attachments 1. August 16, 2023 Planning & Zoning Commission Memo 2. Correspondence Approved by: _____________________________________________ Danielle Sitzman, AICP, Development Services Coordinator Department of Neighborhood and Development Services ATTACHMENT 1 - October 18, 2023 Memo August 16, 2023 Memo to the Planning & Zoning Commission Date: August 16, 2023 To: Planning & Zoning Commission From: Anne Russett, Senior Planner, Neighborhood & Development Services Re: Request to reduce height requirements in RNS-12 zone (REZ23-0005) Introduction The Northside Neighborhood Association petitioned the City Council to consider reducing the maximum allowable height in the Neighborhood Stabilization Residential (RNS-12) zone from 35 feet to 27 feet. The association’s petition can be found in Attachment 1. At its June 6, 2023, work session, the City Council directed staff to prioritize the review of the proposed change. Background History of the Neighborhood Residential Stabilization (RNS-12) Zone The purpose of the RNS-12 zone is to stabilize certain existing residential neighborhoods by preserving the predominantly single-family residential character of these neighborhoods. Provisions in this zone prevent the conversion or redevelopment of single-family uses to multi- family uses. However, existing conforming multi-family uses retain their conforming status when rezoned to RNS-12. The RNS-12 zone allows detached single-family dwellings and duplexes, but does not allow detached zero lot line dwellings or attached single-family dwellings. The zone does not allow new multi-family developments. The existing 35’ maximum height is consistent with all single-family and multi-family residential zones in Iowa City. The zone was originally created after a controversy in 1992 when a project proposed adding more than one residential structure to a single lot in a Low-Density Multi-Family Residential Zone (RM-12). Owners of nearby properties petitioned Council due to concerns that allowing more than one residential structure per lot in RM-12 zones would be out of character with the existing neighborhood. In response, City Council adopted what is now known as the Neighborhood Residential Stabilization Zone (RNS-12)1 on March 30, 1993, and rezoned several properties in the general vicinity of Johnson Street on the west, Clapp Street on the east, Market Street on the north, and Jefferson Street on the south from RM-12 to RNS-12. See Attachment 2. In February of 1994, Council amended the RNS-12 zone to affirm the zone’s single-family character and restrict the number of principal buildings permitted on a lot. It also further clarified that the zone does not allow the construction of new multi-family structures. Over time, Council continued to rezone several additional areas to RNS-12. While the circumstances for rezoning each area were different, the overarching goals included conserving each neighborhood’s single-family character and preventing new multi-family development. A summary of the creation of the zone and the multiple amendments to the zoning map that resulted in rezoning from a multi-family zone to RNS-12 are as follows: 1 This zone was originally named Neighborhood Residential Conservation Zone or RNC-12, but was renamed RNS-12 in 2005. August 11, 2023 Page 2 • March 30, 1993: initial adoption of the RNS-12 zone, which amended the zoning code to create a new zoning designation focused on allowing single-family dwellings and not allowing new multi-family dwellings • March 30, 1993: properties along Johnson Street to the west, Clapp Street on the east, Market Street on the north, and Jefferson Street on the south were rezoned from the RM-12 zone to the RNS-12 zone • June 21, 1994: properties along Church Street between Dubuque and N. Dodge Streets were downzoned from RM-12 to RNS-12 • January 11, 1995: Fairchild and Davenport Streets, between N. Dubuque and N. Dodge Streets, and the 200 block of Bloomington Street, excluding properties zoned RM-44 along Dubuque Street were downzoned to RNS-12 • May 16, 2000: properties along the 300-600 blocks of S. Governor and S. Lucas Streets, and a portion of the 700-800 blocks and 800-900 blocks of Bowery Street were downzoned to RNS-12 • November 21, 2000: properties in the vicinity of Iowa Avenue, Washington Street, South Summit Street, Governor Street, Muscatine Avenue, and College Street were downzoned to RNS-12. The most recent change to the boundaries of the RNS-12 zoning district occurred on May 1, 2007. Property owners in and near the South Governor and Bowery Street areas petitioned Council to rezone the neighboring area from RNS-12 to RS-8. The purpose was to preserve the balance of rental and owner-occupied housing by ensuring that additional duplex conversions would not take place. Council approved the rezoning. The boundaries for areas zoned RNS-12 have not changed since 2007. Explanation of Building Height While the application of the RNS-12 zone has expanded to various areas of the city through multiple rezonings, the height limit in the zone has not changed since it was adopted. Maximum height regulations help promote a reasonable building scale and relationship between buildings, provide light, air, and privacy, and discourage buildings that visually dominate other nearby buildings. The maximum height in the RNS-12 zone is 35 feet, as defined in the code as measured from the average point of ground elevation 5 feet from the building (called “grade”) and the roofline, which is the highest point of a flat roof, the deck line of a mansard roof, or the midpoint between the eaves and ridge of a saddle, hip, gable, gambrel, or ogee roof. Certain items are exempted from building height, such as chimneys, spires on institutional buildings, domes (and similar roof protrusions) without habitable floor space, parapet walls up to 3 feet, television antennas, and roof structures such as solar energy systems, stairways, ventilating fans, and similar equipment required to maintain the building. Maximum height may be increased if all setbacks are increased by an additional 2 feet for each foot of height above the height limit or through a Minor Modification process where applicable approval criteria are met. Staff estimates that almost all properties currently zoned RNS-12 conform with the current maximum height limit. Analysis Extent of the RNS-12 Zone Today, there are 500 properties city-wide zoned RNS-12. Of the 500 total city-wide properties zoned RNS-12, 375 (75%) are also regulated by a Historic District Overlay (OHD) or a Conservation District Overlay (OCD) zone. These overlay zones preserve properties that have been identified as important historic resources. The impact of the overlay zone regulations will be discussed in the next section. Of the 500 properties city-wide, 313 are within the Northside neighborhood. 266 (85%) of those within the Northside are also within a Historic or Conservation Overlay zone. 125 (25%) of properties citywide are zoned RNS-12 and not located within a OHD or OCD zone. 47 of these properties are located within the Northside August 11, 2023 Page 3 neighborhood. In summary, there are few properties that are zoned RNS-12 and not located within an OHD or OCD zone. Figure 1 illustrates the boundary of the Northside neighborhood (in red), the location of properties zoned RNS-12, and properties located within a OHD or OCD zone. Table 1 provides a summary of this data. See also Attachment 3. Figure 1: Map of properties zoned RNS-12 August 11, 2023 Page 4 Table 1: Summary of Parcels Zoned RNS-12 City-wide Number of Parcels % of Parcels Neighborhood Stabilization Residential Zone (RNS-12) 500 100% RNS-12 with Historic or Conservation District Overlay 375 75% RNS-12 with No Historic or Conservation District Overlay 125 25% Northside Neighborhood Number of Parcels % of Parcels Neighborhood Stabilization Residential Zone (RNS-12) 313 100% RNS-12 with Historic or Conservation District Overlay 266 85% RNS-12 with No Historic or Conservation District Overlay 47 15% Local Historic & Conservation Districts All properties within an overlay zone OHD or OCD are subject to historic review for exterior modifications that require a regulated permit (e.g. building permit). As a result, any new construction or demolition must be reviewed and approved by the Historic Preservation Commission (HPC). Properties in these overlay zones are also subject to the guidelines adopted in the Iowa City Historic Preservation Handbook which are analyzed during historic review. With regards to building height the maximum allowable height is 35’; however, the Handbook includes specific guidelines related to building height and mass and notes that “new structures must be one and a half or two stories in height” in the Northside neighborhood. Any proposal for new construction within an OHD or OCD zone would be reviewed based on the surrounding neighborhood context and the building mass and scale of adjacent buildings. With regards to demolition, the Handbook only allows it where the building is structurally unsound and irretrievable. For non-contributing and non-historic properties requesting demolition, the Commission will consider the condition, integrity, and architectural significance of the building. Because most properties zoned RNS-12 are also zoned OHD or OCD, it adds a large degree of protection from any future construction, demolition, or development changes in the future. Field Work Review To identify the potential impacts of the proposed amendment, staff estimated the building height for all properties zoned RNS-12 using 2021 pictometry data from CONNECTExplorer. Staff decided to utilize this after exploring other options. One such option including using lasers and measuring distance and calculating height from the sidewalk; however, there were issues with accuracy. Furthermore, based on our conversations with both City and County GIS professionals they considered this tool to be the best option. It is important to note that without engineered drawings or the use of professional survey equipment and access to each property, it is not possible to ascertain actual building height from grade to roofline. Most buildings in this area were built before current building permitting processes, so construction drawings are not available. As such, this analysis only provides an idea of possible impacts; it should not be interpreted as a definitive count of affected properties. To adjust for potential error in measurement, staff categorized properties into groups with counts shown in Table 2. This analysis suggests that approximately (1/5) one-fifth of buildings zoned RNS-12 may become non-conforming if the height limit were reduced from 35 feet to 27 feet. Generally, these are spread throughout the area zoned RNS-12. However, the impacts of the proposed amendments could be lesser or greater depending on actual measurements. August 11, 2023 Page 5 Table 2: Parcels by Building Height Building Height Number of Parcels % of Parcels Category >35’ 13 2.6% Non-conforming; would continue to be non-conforming 30-35’ 104 20.8% Conforming; may become non-conforming 25-29’ 122 24.4% Conforming; may be conforming or non-conforming <25’ 259 51.8% Conforming; may continue to be conforming Undetermined 2 0.4% Lack of data or challenging site characteristics Total 500 100.0% Source: CONNECTExplorer data collected by City staff Buildings taller than the proposed 27-foot height limit would become non-conforming. Generally, these may continue as they are so long as non-conformities are not increased or extended. In addition, buildings may only be rebuilt to the same height as an existing structure where damage to that building is less than 75% of its assessed value or it is a historic building. Other more flexible non-conforming provisions generally apply to non-conforming single-family uses. Single-family uses may be restored to the same degree of non-conforming or less if destroyed or damaged by fire or a natural disaster. As such, the proposed amendment would have two main impacts on those owning property that may become non-conforming. The first is that future expansions must comply with the new height limit, which may create situations where an addition cannot be the same height as the original building. The second is that if something happens to a structure such that it is destroyed, it may not be permitted to be rebuilt to its current dimension. This has implications for owners in the area in the event of a disaster. It is also considered best practice to minimize the number of non-conformities caused by changes to the zoning code. Redevelopment Review Staff also reviewed demolition permits in RNS-12 zoning districts to identify redevelopment trends over time. Since 1992, the City had 17 residential demolitions in RNS-12 zones (excluding the demolition of a single-family home for a school playground that should be zoned P1). This averages approximately 1 demolition every 2 years over the past 31 years. Two of these from the 1990s are for uses that are no longer allowed. A full list of the demolitions of residential buildings can be found in Figure 2. Figure 2: Demolition of Residential Buildings in RNS-12 Zones, 1992-2003 August 11, 2023 Page 6 The characteristics of these demolitions are summarized below. In addition, Figure 2 shows when demolitions occurred by year. • 1 single-family demo to create vacant lot in 1992; remains undeveloped • 1 single-family demo to build parking • 1 duplex demo to build 4-plex (no longer allowed) • 1 group living demo to build 6-plex (no longer allowed) • 1 duplex demo to build a church • 3 demos for buildings damaged in natural disasters; one single-family redeveloped as a single-family, one single-family redeveloped as a duplex, and one multi-family redeveloped as a duplex • 4 single-family demos to build single-family (includes 319 N Van Buren) • 4 single-family demos to build duplexes • 1 duplex demo to build a duplex Overall, it appears that development pressure in the RNS-12 zone has actually decreased over time and redeveloping small single-family homes into large single-family homes is not common. This may be due to the fact that 75% of properties zoned RNS-12 are also located within Historic and Conservation District Overlay zones, which restrict demolitions. Affordability & Equity Housing affordability is a common goal between both the Northside Neighborhood Association and the City of Iowa City. According to the National Association of Counties Matchmaker Tool, Johnson County is a high-cost county with a rapidly growing population. This is a common indicator that housing supply is not sufficient to meet current housing demand. In addition, the Matchmaker Tool notes that 31.6% of renters in Johnson County are severely cost-burdened, spending half or more of their income on rent alone. Recommended policy solutions include upzoning land to allow for high-density housing and low-cost housing types, flexibility in design standards, establishing an affordable housing trust fund, and relaxing dimensional requirements. This assessment of county-level metrics provides ample solutions to the high-cost housing issue in Iowa City and Johnson County as a whole. Regarding the proposed reduction in height, staff has not found adequate evidence to suggest that a height limit restriction will increase housing affordability. Instead, staff presented and the Commission recommended approval of several best practice zoning reform strategies on August 2, 2023 to increase housing supply and improve housing options. Comprehensive Plan Analysis The Future Land Use Map of the Central District Plan includes a land use designation for Single-Family Residential Stabilization. The description for this designation is as follows: “Intended for older areas of the city where single family homes originally predominated, but due to subsequent changes in zoning have experienced an increase in housing density and some conversion to multi-family and group living uses has occurred. The intent of this designation is to preserve the single-family residential character that remains by preventing further densification and conversion of single family residences to multi-family. Development Density: varies depending on mix of single family and conforming and nonconforming multi-family and group living uses.” This land use designation is applied to large areas of the Northside neighborhood, portions of E. Market and E. Jefferson Streets, and areas of Lucas and S. Governor Streets south of Burlington Street. These areas generally correspondence to the areas zoned RNS-12. August 11, 2023 Page 7 As described in the adopted land use designation, the purpose of the designation is to “preserve the single-family residential character” by “preventing further densification and conversion of single-family residences to multi-family”. In summary, the goal of this land use category is to maintain a single-family neighborhood and restrict the number of units by limiting other housing types. The land use designation does not speak to the scale of development, but rather housing types and density. The scale of the development is regulated by height in the zoning code. There are many statements within the comprehensive plan related to infill development and ensuring that it is compatible and complementary to the surrounding neighborhood. The maximum allowable height in most residential zones is 35’, which implies it has already been determined that 35’ is a height that ensures a complimentary scale. Conclusions • 75% of the properties zoned RNS-12 are located within a Historic or Conservation District Overlay zone. As the staff report outlines, new construction would be subject to historic preservation guidelines, and require review and approval by the Historic Preservation Commission. In short, 75% of properties within the RNS-12 zone are already subject to additional review processes that ensure new structures are not out of scale with the surrounding neighborhood. • Redevelopment pressures do not appear to be mounting in areas zoned RNS-12. Since 1992 there have been 17 residential demolitions in the RNS-12 zone. This is an average of approximately 1 demolition every 2 years. This may be due in part to the large number of properties that are located within Historic and Conservation District Overlay zones, which restrict demolitions. • Lowering the maximum allowable height will unnecessarily create non-conforming situations. • While height limits are intended to prevent domination of adjacent properties, the City has traditionally found that 3 story building heights are appropriate in all areas containing single-family uses, including the RNS-12 zone. The purpose of the RNS-12 zone is to maintain a single-family character, which has been interpreted as preserving single- family uses, and preventing the spread of multi-family conversions and redevelopment. • The purpose of the RNS-12 zone is not tied to historic characteristics or the scale of the development. For that purpose, the City has adopted Historic and Conservation Overlay areas and much of the area zoned RNS-12 is subject to those additional guidelines and requirements. • Reducing the height limit is not a recommended best practice for improving housing affordability, but rather increasing the diversity and density of housing would be the most appropriate methods. • The current height limitation is consistent with other single-family residential zones, thus serving the purpose of the RNS-12 zone to maintain the predominantly single-family neighborhood character. For these reasons, Staff does not support the requested amendment to the zoning code. August 11, 2023 Page 8 Next Steps Staff sent letter to owners of properties zoned Neighborhood Residential Stabilization (RNS-12) notifying them of the petition from the neighborhood association. The letter was mailed on July 26, 2023. Upon recommendation from the Planning and Zoning Commission, the City Council will hold a public hearing on the proposed rezoning ordinance. Staff Recommendation Staff does not recommend approval of REZ23-0005, a proposal to change the maximum allowable building height from thirty-five (35) feet to twenty-seven (27) feet in the Neighborhood Residential Stabilization (RNS-12) zone. Attachments 1. Northside Neighborhood Association Petition to City Council 2. Map of RNS-12 Rezoning Timeline 3. Map of Properties Zoned RNS-12 Approved by: _____________________________________________ Danielle Sitzman, AICP, Development Services Coordinator Department of Neighborhood and Development Services ATTACHMENT 1 Northside Neighborhood Association Petition to City Council ATTACHMENT 2 Map of RNS-12 Rezoning Timeline RNS-12 Rezoning Timeline Prepared by: Melanie Comer Date Prepared: August 2023 ATTACHMENT 3 Map of Properties Zoned RNS-12 ATTACHMENT 2 - October 18, 2023 Memo Correspondence Friends of Historic Preservation P.O. Box 2001, Iowa City, Iowa 52244 www.ic-fhp.org info@ic-fhp.org August 14, 2023 Dear Iowa City Planning and Zoning Commissioners: In June 2023, the Iowa City Council received a request for a zoning code amendment for rns-12 proposed by the Northside Neighborhood Association. The Friends of Historic Preservation supports the document “Proposal for Strengthening Iowa City Central Neigh- borhoods,” which requests the maximum building height for single-family homes and duplex housing to be 27 feet in rns-12 areas. A review of the houses in rns-12 shows that single-family homes range from 1, 1 1/2, 2, to 2 1/2 stories in height. New taller infill housing would not match existing housing and would have deleterious effects in rns-12: 1) It would introduce housing that is out of character in height, mass, and scale. Permitting oversized buildings affects the desirability of a block and the neighborhood. 2) Houses that are taller than 27 feet cast shadows and block sunlight for neighboring houses and gardens. 3) Allowing housing taller than 27 feet will hasten the loss of Iowa City’s housing stock that is historic, durable, and affordable. At the same time, large quantities of high-quality lumber from old-growth forests would be added to the landfill (framing, siding, and flooring). 4) A survey of rns-12 areas shows that there are few if any full 3 story or 35 foot tall houses. Capping the height at 27 feet will maintain the existing residential character of the zone. One of the City’s goals is to keep housing affordable. Housing that already exists is more affordable and environmentally green than removing old homes to construct new ones. We recommend City sponsored programs to revitalize older homes, such as the UniverCity Program. Where houses are in such poor condition that they are removed, they should be replaced with buildings that do not impose on their neighbors. Thank you for your time to review the rns-12 code amendment and for your work on the Planning and Zoning Commission. Ginalie Swaim on behalf of the FHP Board of Directors Northside Neighborhood Association’s Statement to the P&Z Commission Re: Staff’s RNS-12 Recommendation August 16, 2023 We trust you have read our proposal, so we won’t go through it in detail now. We would be happy to answer your questions about it. We will instead focus on the City staff’s report. That report makes a few key mistakes and misjudgments, which lead to inappropriate conclusions. We urge you defer voting on the proposed amendment, instruct the staff to correct these errors, and return to you with a revised report within a reasonable amount of time. First, we did not petition the City Council to consider reducing the maximum allowable height in the RNS-12 zone from 35 feet to 27 feet. Our request focused exclusively on reducing the maximum height for new single-family and duplex residential structures in that zone. Had the staff invited us to consult with them before writing the report, this distinction would have been clarified and any other errors corrected. We made one error ourselves. We meant our application to focus on new structures, but we accidentally omitted that word in our petition. Second, influenced by its error, the staff reports that 117 or more properties currently exceed the proposed 27 ft. height limit. They correctly observe there are 500 properties in the RNS-12 districts, 313 of which are within the Northside. But, instead of using these total numbers when determining how many properties currently exceed the proposed height limit, staff should have used the number of single-family and duplex properties when counting. In our petition we reported that only 188 of the 313 parcels located in the Northside are occupied by single-family structures, 2-family conversions, or duplexes. Even if 3, 4, and 5-family conversions are included, none of the 213 (188 + 25) structures are greater than 2 ½ stories and none of them exceed 27 ft in height. Third, the staff estimated building heights using 2021 pictometry data from CONNECTExplorer. Volunteers from the Northside actually measured the taller buildings. They walked or biked by every property in all of the RNS-12 zones including those outside of the Northside. They identified the taller houses and duplexes. After measuring some apartment buildings for comparison sake, they then went back to the taller buildings with a laser measurer and determined the height from the grade to the midpoint of the roof pitch. These volunteers knocked on the door of each house to tell residents the volunteers were doing research on houses in the neighborhood and asked if they could take some measurements. Every resident they asked granted permission. The volunteers then placed the laser device next to the house to obtain an accurate measurement.1 1 For buildings that were not accessible with a laser device, the volunteers used a tape measure to measure the foundation, any accessible trim, and several feet of siding to determine the number of laps of siding per foot. They then counted the laps of siding from photos. These measurements were added to determine building height. Even if this method underestimated a building’s overall height, the fact that none of the measurements came close to 35 feet justified confidence in the calculations. Fourth, the staff emphasizes that that 85% of all properties in the Northside are located in Historic or Conservation Overlay Zones and that guidelines in the Historic Preservation Handbook state that “new structures must be one and a half or two stories in height.” We would emphasize, however, that these guidelines do not have the force of law. The Zoning Code is what matters when it comes to heights, and it is important for the guidelines and the zoning law to be consistent with one another to avoid having two different height limits in the same zone. Fifth, the staff reports there have been only 17 residential demolitions in the RNS-12 zones over the past 30 years. We agree. However, we note that 14 of those structures were single-family, and 14 out of 151 is 10 percent of the neighborhood’s current stock of single-family / owner- occupied properties. Moreover, the relative paucity of demolitions does not necessarily reveal a lack of development pressure. Over the years, 25 properties have been converted from single- family to 3, 4, or 5-family structures. The staff also emphasizes that the Historic Preservation Handbook allows demolitions only when a building is structurally unsound and irretrievable. Yes, but years of neglect and disinvestment can make a building unsound and irretrievable. And the staff essentially dismisses our concern for the small, inexpensive, single-family structures located in the southeastern part of the Northside neighborhood outside the OHD and OCD districts. And, even more important, the past does not necessarily presage the future. Relying too heavily on past trends is like looking in the rearview mirror to know where you’re headed. Just two weeks ago, you approved staff-proposed amendments to the Zoning Code which are explicitly designed to increase the supply of housing by making it easier and more profitable to build new structures. With this in mind, it is especially important to look at the mix of owners of the 363 residential properties located in the Northside neighborhood’s RNS-12 district (plus the part of the district that extends east outside of the Northside’s boundary). Forty-two percent (42%) are owned by 66 or more Limited Liability Companies (LLCs) and other incorporated entities. LLCs owned by one individual own 13% of the 363 residential properties. One family owns at least 17 of the RNS-12’s residential properties, and a third entity owns another 16. Together, these three owners possess 23% of all the residential properties in the Northside area’s RNS-12 district. They are likely to have considerable influence over what gets demolished and what gets built in the RNS- 12 districts. Sixth, the staff indicates it is not aware of any evidence that the proposed height limitation would increase housing affordability. We never said it would. What we did say is that reducing the maximum permitted height of new single-family and duplex structures would reduce the pressure to demolish older, and currently very affordable, owner-occupied structures. Any new structure will be far less affordable than an existing structure. Seventh, the staff states that the existing 35’ maximum height is consistent with all single-family and multi-family residential zones in Iowa City. It is our understanding that this is not true; the form-based code for the South District limits heights to 2 and ½ stories or 30 feet at the peak of the roof (essentially 27 feet to the midpoint of a sloped roof), which is what we have asked for. Last, the staff states “it has already been determined that 35’ is a height that ensures a complimentary scale.” We disagree. The RNS-12 zone was specifically drafted to preserve the existing single-family character of certain neighborhoods. Section 14-2A-1E further stipulates that the maximum height standards in the Code are intended “to discourage buildings that visually dominate other buildings in the vicinity.” The current 35-foot height limit encourages redevelopment with out-of-scale buildings that can have harmful effects on neighboring properties; it is, therefore, counter to the purpose of the RNS-12 zone. Permitting new infill structures of that height would make it more difficult for the Northside neighborhood to retain a healthy balance of affordable rental and owner-occupied housing without compromising the character of the Northside neighborhood. Given these facts, we urge you to defer, to instruct the staff to revise its report, and to consider the proposed amendment in the near future. We would be eager to work with staff to ensure that both parties agree about the facts that matter. August 15, 2023 Dear Commissioners, I served as Senior Planner for the City of Iowa City from 1994 to my retirement in 2018. In that capacity I supervised the team that drafted the Zoning Code and the Comprehensive Plan including the Central District Plan. Prior to being Senior Planner I was an Associate Planner from 1990 to 1994. I helped to draft and implement the RNS - 12 zoning district. I am therefore very familiar with the intent and application of these documents and ordinances. I believe that the Northside Neighborhood Association’s proposal to limit the height of new single-family houses and duplexes to 27 feet is keeping with the intent of the RNS- 12 zone to stabilize existing residential neighborhoods by preserving the predominantly single-family residential character of these neighborhoods. The proposal is also supported by the policies of the Comprehensive Plan, Central District Plan and our community’s goal to preserve affordable housing (I have attached excerpts from those documents that speak to this issue). The City adopted the RNS-12 in an attempt to maintain some of the close-in neighborhoods for individuals and families who wish to live within walking distance of downtown and the University of Iowa campus. The City Council and the Commission were concerned that proposals to redevelop existing housing with buildings marketed to University students would further displace affordable housing and change the character of the core of the city. At the same time, we recognized the need to provide a variety of housing including residences for University students. In addition to the RNS -12 zone we drafted the PRM and CB-5 zones to provide for high-density housing and mixed-use areas. We also recognized that the areas that we rezoned to RNS-12 already contained a great diversity of housing with a mix of single-family homes, duplexes, contemporary apartment buildings and older houses that had been converted to multiple dwellings. We wrote the ordinance to keep the mix of uses but not to further diminish the supply of single-family properties. In other words, the goal was to take development pressure off the existing neighborhoods north and east of downtown and the campus and encourage greater development downtown and south of Burlington Street. I believe we are now seeing the benefits of this policy with residential development in Riverfront Crossings and downtown. But there still is development pressure on the Northside and Goosetown neighborhoods where investment companies are buying up properties and making them unaffordable for individuals and families. Amending the height limit for new single-family/duplexes in the RNS-12 will help level the playing field by removing an incentive to redevelop existing houses with tall structures marketed to University students. When we rewrote the zoning code in 2005 we considered all aspects of the regulations with the goal of creating pleasant and sustainable neighborhoods. As stated in the Zoning Code, the height regulations are intended to promote a reasonable building scale and relationship between buildings; provide options for light, air, and privacy; and discourage buildings that visually dominate other buildings in the vicinity . When redrafting the dimensional regulations we considered reducing the maximum height of single-family dwellings in recognition that most houses are 1 to 2.5 stories. Even in new subdivisions it is rare to see houses taller than 2 stories on the street side of the property. After consideration, we chose not to propose a reduction in maximum height so as not to hinder walkout basements on sloping lots. As the Northside Neighborhood Association has pointed out, there are few sloping lots within the areas zoned RNS-12, and therefore 35 feet is not necessary to accommodate such structures. Although the City once maintained a uniform 35-foot height limit for single-family residential uses, the South District Form-Based Code has set a precedent for restricting houses to 2.5 stories. I believe that is a good move and should also be considered for the RNS-12 zone where the intent is to preserve the existing character. Maintaining the current 35-foot height limit invites redevelopment of much taller buildings than those that exist in the RNS-12 zone. Unlike other areas of the city which have larger lots, the Northside, College Hill and the western portion of the Longfellow Neighborhood (areas zoned RNS-12) consist of tightly packed small lots where construction of 3- to 3.5-story houses will disrupt the quality of life of their neighbors. Taller buildings cast shadows that block natural light to interiors of homes and gardens. It appears that staff made an error when calculating the number of properties that would become non-conforming if the Northside’s request is granted. Table 2: Parcels by Building Height on page 5 of the staff report is based on all 500 properties in the RNS- 12 zones. This includes multi-family apartment buildings that would not be subject to the amendment. The Northside’s requested amendment only applies to single-family and duplex structures, very few of which are over 2.5-stories tall. It has been indicated the historic districts have guidelines to discourage houses taller than 2.5 stories and therefore a reduction of the maximum height in the RNS-12 zone is not necessary. Does this mean we don’t care about the quality of neighborhoods outside of historic districts? If you observe your own neighborhood I suspect you will find that 1- and 2-story houses are by far the most common house type and are appropriate for the smaller-sized lots found in the RNS-12 zone. To further the goals stated in the Comprehensive Plan, I encourage you to recommend approval of lowering the maximum height limit for single - family and duplex structures in the RNS-12 zone. Sincerely, Robert Miklo ATTACHMENT: COMPREHENSIVE PLAN EXCERPTS The following excerpts from the Comprehensive Plan and the Central District Plan support the Northside Neighborhood’s request to lower the maximum height of single- family and duplex structures in the RNS-12 zone. As encouraged by these Plans, the Northside has identified a quality-of-life issue raised by recent development proposals for 35-foot-tall buildings and has asked the City to address this concern. Page 21 Preserve Historic Resources and Reinvest in Established Neighborhoods: Adopting strategies to assure the stability and livability of Iowa City' s historic and established neighborhoods helps to preserve the culture, history, and identity of Iowa City. Investing in the neighborhoods that are closest to major employers in the city preserves opportunities for people to live close to work, school, and shopping; pro- motes walking and bicycling; and reduces vehicle miles traveled. In addition, many established neighborhoods contain affordable housing options along walkable, tree-lined streets where City services and infrastructure are already in place and where neighborhood elementary schools and parks are the focal point of neighborhood activity and identity. Page 21 Encourages Compatible Infill Development: Quality infill development plays an important role in neighborhood reinvestment and may include rehabilitating existing structures or encouraging new development of vacant, blighted, or deteriorated property. Development of infill sites should add to the diversity of housing options without compromising neighborhood character or over-burdening infrastructure, including alleys and parking. Page 24 Land Use Goals and Strategies: Ensure that infill development is compatible and complementary to the surrounding neighborhood. Pages 28 and 29 Housing Goals and strategies: Strive to create a healthy balance of rental and owner-occupied housing in all neighborhoods. Preserve the integrity of existing neighborhoods and the historic nature of older neighborhoods. Develop neighborhood plans that help ensure a balance of housing types, especially in older parts of the city. Support the Historic Preservation Commission’s efforts to meet its goals. Support housing rehabilitation programs and re-invest in housing in existing neighborhoods. The UniverCity Neighborhood Partnership purchases and renovates rental properties in areas near the Downtown and Campus. These homes are then resold as affordable owner-occupied housing. The goal is to achieve a healthier balance of owner -occupied and rental properties in near-campus neighborhoods that still retain a single- family character. CENTRAL DISTRICT PLAN Page 2 Describes how the plan should guide preservation of existing neighborhoods and redevelopment: The Central District Plan will be used as a general guide to future development or redevelopment within the district and for preserving valuable assets already present within established neighborhoods. It will take the efforts of City officials, area residents, businesses, and community organizations to achieve the goals and objectives in the plan. Planning staff, the Planning and Zoning Commission, the Board of Adjustment, and the City Council will use the plan as a guide when reviewing development and rezoning requests. It will serve as a tool for neighborhood groups, community organizations, and other interested parties to advocate for improvements and form partnerships to make elements of the plan a reality. The City will refer to the plan when setting funding priorities for public projects, improvements to existing infrastructure, and public services. Property owners, business owners, and developers who are thinking of investing in the Central District will find the plan useful as a framework for their plans. The plan will also serve as a benchmark over time and continued input from the public will ensure that the plan works equitably and reliably. Preserve Historic Resources and Reinvest in Older Neighborhoods - Adopting strategies to assure the stability and livability of Iowa City's older neighborhoods helps to preserve the culture, history, and identity of Iowa City. Investing in the neighborhoods that are closest to the University and other major employers in the city provides options for people to live close to work, school and shopping, prom otes walking and bicycling, and reduces vehicle miles traveled. In addition, older neighborhoods contain many affordable housing options where City services and infrastructure are already in place. Page 9 Describes zoning history and how zoning is a tool to achieve the community’s goals: In the early 1960’s, the City drafted a new comprehensive plan with help from an out -of- town consulting firm, which advised the City to up-zone many of the close-in neighborhoods to encourage redevelopment with higher dens ities and modern buildings. In response to the resulting up-zonings, rising University enrollment, and a University policy to build no new dormitories, widespread redevelopment of older neighborhoods began to take place in the 1970’s in the form of the mansard-plexes (generally 12-unit apartment buildings that were nicknamed for the simplified mansard roofs). In addition, the higher densities allowed in the new zones permitted the large single-family homes typical of the area to be split into apartments and rooming houses. Given that the older neighborhoods were built with streets, yards, and parking to support single -family homes, the increasing densities put a strain on the neighborhood infrastructure. Backyards were turned into parking lots, on-street parking became more congested, and apartment buildings were constructed that were out of character with the neighborhood. Many residents objected to the unchecked transformation in neighborhood character and petitioned the City to down zone areas to preserve the single-family residential character that remained. In response, the City Council down- zoned some of the City's older neighborhoods by adopting two new zoning designations, beginning with the RNC-20 zone adopted in 1983 and followed by the RNC-12 zone in 1992. These new zones acknowledged the mix of uses that had already resulted from the re-zonings of the 1960s while preserving the character of the older neighborhoods by preventing further densification. In addition, the Central District Multi-family Residential Design Standards, adopted in 2000, ensure that new multi- family structures built in the Central District are compatible with the surrounding neighborhood. The City has also been successful in protecting historic resources in the Central District through the adoption of historic district and conservation district overlay zones, and by bestowing historic landmark status on the area's most significant buildings and properties. Page 13 Describes student housing and affordability: Sub Area A (ares north and east of campus and downtown, including the RNS-12 zones) There is a steady demand for housing in the neighborhoods closest to Downtown and the University campus, and the market is quite complex. The University has approximately 6,000 on-campus housing units, while student enrollment is now over 30,000, making the private housing market the primary provider of student housing. Over the years, many single-family homes in neighborhoods closest to the university have been split into apartments and rooming houses or have been replaced with apartment buildings. The demand for student housing in Subarea A keeps apartment rents higher than in the rest of the Iowa City metropolitan area. Homeowners also compete for the charming historic homes that are conveniently located close to employment centers. While there are a considerable number of smaller, modest homes in Subarea A, the competition from student renters, who often live together and pool their resources, keeps these homes out of the financial reach of many singles or families looking for affordable homes to rent or own. While this mix creates a vibrant and interesting living environment, it has been an ongoing challenge to maintain a balance between the different housing types and mix of residents within Subarea A. With absentee landlords and a large number of inexperienced young renters, problems with property maintenance, loud and disorderly conduct, yard upkeep, and snow removal are more prevalent. In an effort to identify and address ongoing nuisance issues in older neighborhoods, the City formed a Neighborhood Relations Task Force in 2001, which included representatives from neighborhood associations, landlord interest groups, tenant interest groups, the Association of Realtors, and various City departments, including Neighborhood Services, Housing Inspections, the City Attorney’s Office, and the Police Department. Page 14: Speaks to the role of Neighborhood Associations: An important goal of the Central District Plan is to continue to monitor and enforce the Neighborhood Nuisance Ordinance and to identify any additional quality of life issues that surface so that they can be addressed in a timely fashion through targeted code enforcement, mediation, education, or additional regulation. Neighborhood associations play a critical role in monitoring neighborhood conditions, advocating for services and neighborhood amenities, and disseminating information to area residents. Neighborhood Associations should continue their efforts to be inclusive and effective partners in maintaining quality of life in the Central District. The City should continue to support these organizations and encourage formation of new associations where needed. The City should also partner with the University to find ways to ensure that young University students have access to —and maintain—safe and healthy off-campus living environments. Many Central District workshop participants asked why the University wasn’t taking a more active role in providing or partnering with private developers to provide better housing options for students.