HomeMy WebLinkAbout09212010 Planning & Zoning Work Session Packet PLANNING AND LAND USE REGULATIONS
TABLES
Zoning District Designations
The following zoning district abbreviations are provided for information and interpretation:
RR = Rural, very low density single-family residential
R1 = Single-family, low density residential
R2 = Single and two-family, medium density residential
R3 = Single, two and multi-family, high density residential
UR = Urban residential, a mix of residential uses and low impact home
professional offices
OR = Office residential
AC = Auto and neighborhood oriented, light commercial
HC = Harbor commercial
CB = Central business district -dense downtown commercial
I = Industrial
RM= Resource management-partially developable lands subject to floodplains
and steep slopes
INS = Institutional, public, quasi-public uses
P= Parks
Supplement No. 08-1 15-6 1
PLANNING AND LAND USE REGULATIONS
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Supplement No, 08-1 15-62
PLANNING AND LAND USE REGULATIONS
Table 15.10.220. Development Requirements—Notes
NOTE I.Within the HC District,in the area bounded by Fourth Avenue,the boat launch ramp,
the harbor basin and J Float Ramp, building height is limited to 26 feet.
NOTE 2.
A. Buildable/useable area—Lot may have to be larger to have minimum buildable area
available.
B. In the R1, R2, R3,UR, OR and AC Districts,from the Seward Highway/Phoenix Road
intersection—South, 6,000 SF and north, 7,000 SF with 60 and 70 foot minimum
frontages respectively, for single-family residences.
C. A single RR lot may be divided into two lots of less than 20,000 SF each if the reduction
below 20,000 SF is to accommodate required widening of an adjacent right-of-way.
D. In the R1,R2,R3,UR,OR and AC Districts,individual originally platted lots of at least
3,000 SF in the Original Townsite, Federal Addition,Laubner Addition, Cliff Addition
and Bayview Addition may be developed for single-family residences provided all other
development requirements of this chapter are met.
E. Multi-family developments with three—four units require a minimum of 9,000 SF in
the R3, UR, OR, AC and CB Districts and 20,000 SF in the RM District. All said
districts require an additional 1,200 SF per unit of five or more units.
NOTE 3. See Notes 2-1) and 2-E above.
NOTE 4. From Seward Highway/Phoenix Road intersection—South, a five-foot setback, each
side; north, a minimum five-foot setback each side as part of a combined 15-foot setback total
between both sides.
NOTE 5. In the HC District, parcels abutting mean high tide—No rear yard setback; parcels
abutting the waterfront boardwalk—Five feet; and parcels not abutting the waterfront
boardwalk or mean high water mark—Ten feet.
NOTE 6. Excludes setbacks in HC and I.
NOTE 7. In the Industrial District, no minimum lot size, width or setbacks are required for
unmanned electronic sites.
NOTE 8- Tract D of USS 1864 Jesse Lee Home Subdivision shall not be used for any uses other
than those allowed in an R1 district, except for a long term care facility, aka skilled nursing
care facility.
(Ord. 2007-009, § 1, 2007)
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(1)Rural residential district (RR). Rural residential means44 stable, quiet, low
density (one or two dwelling units per acre) detached single-family residential
development, free from other uses except those which are both compatible and
convenient to residents of such a district including recreational, religious and
educational facilities of an appropriate scale and design complementary to the
neighborhood character.
(2)Single-family residential district (RI). Single-family residential means stable,
quiet, low to medium density (one to five dwelling units per acre) detached
single-family residential development, free from other uses except those which
are both compatible and convenient to residents of such a district.
(3) Two-family residential district (R2). Two-family residential means medium
density (one to seven dwelling units per acre)transitional45 housing area with a
mix of single and two-family units, free from other uses except those which are
both compatible and convenient to residents of such a district.
(4)Multi family residential district (R3). Multi-family residential means a
density level higher than RR, RI or R2,46 with a mix of housing units that are
predominately multi-family units close to concentrations of public services,
employment or47 recreation. This district may provide a transition between more
concentrated48 and lower density residential areas if sufficient screening and
design features are provided to protect multi-family residences from effects
inconsistent with safe and healthy residential living.49
(5) Urban residential district (UR). Urban residential means a density level
higher than RR, R1, R2 and possibly R3 with mixed residential uses ranging from
detached single-family housing to multi-family apartments and with compatible
4s The title in the present ordinance says"Definitions—Purposes." I chose a new title slightly less
definitive and final,and reflecting the generality one actually finds in the descriptions of the various
districts.
441 have added the word"means"to every subsection defining districts. The present ordinance uses
incomplete sentences.
45 I'm puzzled by the use of the word"transition"here. I originally thought it meant that residents were
transitioning into greater privacy,better housing. But the OR definition below suggests that the word
"transition"applies to the character of the zone itself,shading smoothly from zones on each side. This
requires further research and discussion.
46 The present ordinance simple calls for"a higher density residential setting"without a reference point.
Higher than what? It should not be left to implication. I have incorporated the preceding subsections as the
reference points.
47 The use of"and/or"creates ambiguities. Usually one can choose which is most appropriate. I have
changed the present ordinance from"and/or"to"or."
4'The present ordinance refers to more"intensive districts and lower density districts." I have replaced
"intensive"with"concentrated density"because"intensive"is too ambiguous a word. (It can mean
intense,thorough,profound,concentrated,extensive, forceful or emphatic.)
49 The present ordinance refers to protecting these multi-family residences from"undesirable effects." That
is entirely too subjective a measure for predictability in law. I have changed the standard to"safe and
healthy residential living."
low impact professional office uses, all located in the area surrounding a central"
business district.
(6) Office/residential district (OR). Office/residential means moderates l density
residential, commercial and office development designed to act as a transition
zone between the high density central business district and the density levels of
surrounding districts with densities similar to R2 or R3-districts.52.
(7)Harbor commercial district (HC). Harbor commercial means water-related
and water-dependent uses by enterprises engaged in tourist, recreational,
commercial or light industrial business at or near a harbor location.53
(8)Auto commercial district (AC). Auto commercial means highway-oriented
and traffic-oriented commercial activities such as offices, certain institutional
uses, related personal services, and retail uses requiring outdoor activities.54 This
district also serves offices and nearby residential areas in a manner that does not
materially detract from the nearby residential areas.
(9) Central business district (CB). Central business means convenient, attractive,
concentrated commercial development primarily intended for retail, financial,
entertainment and professional services occurring within enclosed structures.
Regulations applying to this zone are designed to encourage a compact group of
businesses of a type that are mutually beneficial and are located close enough
together to encourage walk-in trade.
(10) Heavy55 industrial district(HI). Heavy industrial means that the principle
use of the land is for heavy manufacturing,primary processing of raw materials,
heavy fabricating, heavy repair, mass assembly or other basic production
enterprises that may create nuisances not associated with or compatible with
residential or lighter commercial land uses. Environmental safeguards are
particularly important in this district to protect people employed in the district or
visiting the area. Land use regulation in this district will include some visual
amenities for compatibility with adjoining residential or commercial areas.
50The present ordinance says"downtown business district,but the definition of the"central business
district" in the present ordinance is not necessarily"downtown." Hence, I have changed this reference to
"central business district" for consistency.
51 I have changed"medium density"to"moderate density,"because"medium density"has already been
defined very specifically in the R2 zone description,and that definition of"medium density"is quite
clearly inappropriate in this OR district.
52 The present ordinance refers to"medium-high density residential districts,"but we have no such density
level described above. The drafter must have meant R2 and R3 density levels.
53 Query whether"industrial"enterprises should be in the HC district definition.
54 I have changed the syntax in this sentence from the present ordinance,hopefully to make it clearer.
55 This zone and the following are new proposals for consideration. There was some discussion among
commissioners that perhaps areas like the Lierer Subdivision should not be in the same zoning district as
SMIC. I present this idea here for your consideration. (An alternative would be to keep the same number
of zoning districts and change the Lierer Subdivision to,e.g.harbor commercial or auto commercial.)
(11)Light industrial district (LI). Light industrial means that the principle use of
the land is for commercial businesses engaged in light manufacturing, value-
added processing, light fabricating, repair, light assembly, storage, wholesaling,
or distributing operations that may create some nuisances not associated with or
compatible with residential land uses. This zoning includes providing
environmental safeguards to protect people employed in the district or visiting the
area. Land use regulation in this district will include some visual amenities for
compatibility with adjoining residential or commercial areas.
(12)Institutional district (INS). Institutional means public land reserves,56 public
uses, and private uses of a public character primarily for educational, charitable,.
public assistance57 and health care purposes58 compatible with the surrounding
areas.59 The development standards must assure that the activities provide visual
and social60 amenity to the surrounding area.
(13)Parks district (P). Parks means publicly accessibleb1 scenic, natural,
developed recreational or commemorative areas primarily serving leisure,
recreational, sedentary or contemplative purposes or other similar purposes for the
public.
(14)Resource management district(RM). Resource management means lands
that are generally undeveloped and cannot be precisely zoned due to inadequate
information on the extension of public services and utilities, the suitability of the
land to support commercial, residential, industrial or public uses, and other
possible environmental considerations.
(15) Tidelands district (T).62 Tidelands means submerged and filled63 land
surfaces below the mean high tide line or ordinary high water mark,64 usually
56 The present ordinance addresses"public land reserve for future public development." I have shortened
that reference to allow in this district not only"uses"but"reserves"for the same purposes.
571 have added"public assistance"to pick up all of the entitlement programs and help that comes from
public and private entities for various needy groups—those public services not necessarily education,
charitable(in the true sense)or health care(in the narrower sense).
58 I have deleted"administrative"purposes because that adjective is too broad. Also,that function is
implied in the allowance of all o f the other purposes.
59 I have added"compatible with the surrounding areas"to safeguard against the possibility that an
"institutional"prison or drug rehab center might otherwise argue for location near a residential district.
601 have added"social'amenities. The present ordinance addresses only visual amenities. Like footnote
_,this present change adds to assurances that uses will not be severely incompatible with the surrounding
social uses of property.
61 I have changed this definition to include the possibility of a privately owned park accessible to the
pub
lic.
2 This is the new district added to Title 15 by me after discussions during a P&Z work session left a sense
that such a district should be created to replace the present ordinance provision,which says that each other
zone extends into the submerged lands in a"cardinal'direction. But which way?And which"swing"
toward which contiguous district? This present language is ambiguous and potentially results in huge
directional shifts of land use seaward. Also,this present language is irrational. Why should submerged
lands be treated as"Park"one place and"Central Business"another place? Tide and submerged lands
0
delineated by the National Geodetic Vertical Datum (NGVD) Check if this is the
right reference of 1929 or other datum,65 frequently defining differences in base
flood elevation information on flood insurance rate maps, and usually governed in
use by a public trust66 doctrine.
should be treated differently from uplands in land use planning because entirely different sets of laws apply
and because the nature of the"land"is inherently different from uplands.
63 Generally speaking,the legal status of lands below the mean high tide line—defining the difference
between submerged lands and uplands—does not change because of anthropogenic erosion or accretion.
Other governments like the Corps of Engineers and the Alaska Department of Natural Resources will
continue to claim the legal status of"tidelands"as such even after someone fills those tidelands.
This does not mean,however, that Seward must zone all filled tidelands in this new zone. I define
"tidelands"in this district,but nothing says all such lands must be placed in this district. In the same sense
that adjoining property can be Auto-Commercial and Harbor-Commercial, adjoining tidelands can be
Tidelands and, e.g.,Harbor-Commercial or Park or Light Industrial. The ordinance that enacts this redraft
of Title 15 will not automatically place any lands in any district,other than how prior ordinances have
enacted the Seward Land Use Map.
64 In law,one usually uses the term"mean high tide line." In less formal(and more subjective)contexts,
the term"ordinary high water mark"is used. They are not always exactly the same,but I adopt both terms
here because I want the boundary delineation of this"District"to remain somewhat general so that a future
city council has flexibility later in deciding which lands to place in this district. For the same reason,I
employ here the adverbs"usually' and"frequently." (Remember that we are not creating a definition per
se in this subsection. We are characterizing what is typical for this district by describing the kind of lands
that it normally includes. Cf.,other descriptions of other districts in other subsections here.
65 This phrase is taken from the definition of"mean sea level"in 44 DFR§59.1,the definition used by
FEMA on flood insurance rate maps for high velocity flood zones. I incorporate that information here, so
that Seward's floodplain management ordinances will comport with federal requirements to qualify for
flood insurance coverage.
66 Under the Alaska Tidelands Act, local governments and private parties were give preference rights to
receive conveyance of tide and submerged lands from the Territory and the State. Individuals and
companies received full patents(fee simple ownership and not just long-term leases)to the tide and
submerged lands that they had used and occupied during territorial days. The history and meaning of this
Alaska Tidelands Act is described in detail in the 1977 Alaska Supreme Court case of City of Homer v.
Hillstrand et al. (where the pioneering Hillstrand family received title to the tidelands off the tip of the
Homer Spit, which they had operated as a federal trade and manufacturing site—"Land's End"—since
territorial days).
But in 1988 the Alaska Supreme Court refined the meaning of a tideland patent conveyed to
private parties by holding that,under the"public trust doctrine"established by the U.S. Supreme Court in
1.898,the State's conveyance of a tideland patent to a private party was always implicitly subject to the
right of the general public to enter those tidelands for purposes of navigation,commerce and fishery. The
rationale was that,at the time of statehood,the new state received these lands from the federal government
pursuant to a federal statute stating that it was"in trust for the people of the State that they may enjoy the
navigation of the waters,carry on commerce over them, and have liberty of fishing therein freed from the
obstruction or interference of private parties." Hence,a state could only convey to a private party(and
presumably a local government)what the state had received from the federal government,and that"public
trust"was reserved for the people by the federal government. See,CWC Fisheries,Inc. et al. v. Bunker.
All tidelands off Seward are subject to this public trust doctrine—the right of the public to enter
the tidelands for at least navigation, commerce and fisheries. (Some courts have expanded that right of
entry to recreation and other uses.) Reference to that doctrine in this ordinance-description of the district
adds specificity to the dimension of the meaning of"tidelands,"while also reminding Seward planners and
elected/appointed officials in the future that these submerged lands generally do indeed carry"public trust"
implications not normally part o the planning considerations in upland districts.
August 17, 2010
Land Use Tables
Comments submitted by Carol Griswold
Consider adding a FLOODPLAIN DISTRICT: for the regulation of usage of flood prone
lands to protect the water flow and reduce flooding effects.
Consider replace Park District with a Park and Recreation District to provide areas where
active and passive recreation activities may be conducted and for conservation of natural
and cultural areas and resources. This district is intended to include those public and
private park and recreation and conservation areas,which are designed as parks in the
adopted City Master Plan.
Consider adding an "Open Space District" for use as a buffer zone between uses, a
protection zone for difficult topography, and to preserve natural conditions. This district
is most often utilized to buffer one land use from another such as apartments, office, or
commercial development from single family.
the above from
<http://www.littlerock.org/CityDepartments/PlatuiingAndDevelopment/subsection.aspx?
PageID=126>
Our Institutional District is a hodge-podge of unrelated uses, some of which are totally
incompatible.
The American Planning Association includes hospitals, schools, government buildings,
and not-for-profit businesses in the Institutional District. NOT shooting ranges,prisons,
boat harbors, docks, campgrounds, golf courses, bunkhouses, solid waste disposal,
warehouses, marine terminals, theaters, etc.
Institutional Zone: primary intent
Encourage institutional uses with the primary purpose of serving the educational, health
care, and social needs of the residents
Institutional Zone uses:
for institutional,public or quasi-public uses (Seward Code)
delete use from "campground, camper park, RV park." Commercial uses are not
compatible with purpose.
delete use from "child care, licenses center", and "child care, licensed home."
Commercial uses are not compatible with purpose.
Strongly recommend deleting "correctional/prison facility" from Institutional category; it
should NOT be allowed next to a public school, nursing facility, or teen center for
example.
delete "docks/wharves, industrial cargo". These belong in Industrial Zone.
Is a golf course or golf driving range a public or quasi-public use? I think it's commercial
and should be deleted from the Institutional Zone use.
Delete Bunkhouse. This belongs in a commercial district.
Delete Solid Waste Disposal; this belongs in Industrial.
Delete Storage, warehouse, and distribution. This belongs in Industrial and commercial.
Delete Terminal, marinelboat passenger. This is a harbor-related, and commercial use.
Delete Vehicle Impound Lot. Next to a school???A tot lot? The library?
This is an industrial use.
Delete Railroad. This is an Industrial use.
Delete Recreational Shooting Range. This is a dangerous activity that does not belong
next to a school, tot lot,museum, etc.
Delete Resource Extraction, cormnercial surface, ie gravel. This is an Industrial use.
Parks:
Delete Center, community/civic from Parks. Does not belong.
Delete Center, senior or teen from Parks. Ditto. Belongs in commercial district.
Delete Golf course and driving range from Parks. This is not compatible with our limited
park property.
Delete Recycling self-service or drop-off pointin Parks. They're allowed in many other
places.