Consideration and Adoption of Resolution No. 2025-61 and Ordinance No. 2025-26: A Resolution of the City Council of the City of Flagstaff, Coconino County, Arizona, declaring as a public record that certain document filed with the City Clerk entitled "PZ-25-00027 - Middle Housing" and an Ordinance of the City Council of the City of Flagstaff, Coconino County, Arizona, amending the Flagstaff City Code, Title 10, Flagstaff Zoning Code.
 

The City is requesting a modification to the following Zoning Code provisions for the purposes of allowing middle housing types and land uses similar to single-family housing types and land uses. Chapter 10-20: Administration, Procedures, and Enforcement, Division 10-20.30 Common Procedures, Division 10-20.40: Permits and Approvals, and Division 10-20.60: Nonconforming Provisions. Chapter 10-30: General to All, Division 10-30.50: Public Improvements, and Division 10-30.60: Site Planning Design Standards. Chapter 10-40: Specific to Zones, Division 10-40.30: Non-Transect Zones, Division 10-40.60: Specific to Uses, and Division 10-40.40: Transect Zones. Chapter 10-50: Supplemental to Zones, Division 10-50.20: Architectural Design Standards, Division 10-50.60: Landscape Standards, and Division 10-50.80: Parking Standards. Chapter 10-80: Definitions, Division 10-80.20: Definitions of Specialized Terms, Phrases, and Building Functions.  

The Planning & Zoning Commission voted 6-0 to recommend approval of this amendment.

There are no anticipated financial impacts affiliated with the proposed Zoning Code Text Amendment.

There are no anticipated policy impacts affiliated with the proposed Zoning Code Text Amendment.

There has not been a previous City Council decision on this Resolution or Ordinance.

The City Council may adopt, modify, or deny the proposed Zoning Code Text Amendment.

The purpose of this amendment is to update the Zoning Code in accordance with HB 2721 to allow middle housing types (townhomes, duplexes, triplexes, and fourplexes) in all zones where single-family homes are permitted.  The legislation states that a municipality may NOT do any of the following:

• Discourage the development of middle housing through requirements or actions that individually or cumulatively make impracticable the permitting, siting, or construction of middle housing.
• Restrict middle housing types to less than two floors.
• Restrict middle housing types to a floor area ratio less than 50 percent (0.50).
• Set restrictions, permitting or review process for middle housing that are more restrictive than those for single-family dwellings within the same zone.
• Require owner occupancy of any structures on the lot.
• Require more than one off-street parking space per unit.

This proposed amendment covers several sections of the Zoning Code to ensure that middle housing types as defined by HB 2721 are treated like single-family housing types.  HB 2721 defines middle housing as follows:

• Middle Housing: means buildings that are compatible in scale, form and character with single-family houses that contain two or more attached, detached, stacked, or clustered homes.  Includes duplexes, triplexes, fourplexes, and townhouses.
  • Duplex:  means two dwelling units on the same parcel or lot in attached, detached, or semi-detached arrangements that are designed for residential occupancy by not more than two households living independently from each other.
  • Triplex: means three dwelling units on the same parcel or lot in attached, detached, or semi-detached arrangements that are designed for residential occupancy by not more than three households living independently from each other.
  • Fourplex: means four dwelling units on the same parcel or lot in attached, detached, or semi-detached arrangements that are designed for residential occupancy by not more than four households living independently from each other.
  • Townhouse: means dwelling units that are constructed in a row of two or more attached units in which each dwelling unit shares at least one common wall with an adjacent unit and that are accessed by separate outdoor entrances.

The following is a chapter-by-chapter review of each part of this amendment:

Chapter 10-20: Administration, Procedures, and Enforcement.  The purpose of this chapter is to set forth the provisions for the orderly application and processing of development applications.
Chapter 10-30: General to All.  This chapter provides standards and regulations for the creation and preservation of affordable housing, historic and cultural resources, provides minimum requirements for the installation of public improvements, promotes sustainable development practices through incentives, and establish site design standards.
Chapter 10-40: Specific to Zones.  This chapter establishes the zones applied to property within the city and indicates which land uses are permitted by right or as conditional uses subject to a conditional use permit.
Chapter 10-50: Supplemental to Zones.  This chapter provides standards that are supplemental to the regulations of each zone, and are specific to aspects of development, such as architectural design standards, landscaping, and parking.
Chapter 10-80: Definitions.  This chapter provides definitions of terms and phrases used in the Zoning Code that are technical or specialized or that may not reflect common usage.
A Zoning Code Text Amendment shall be evaluated based on the following findings:
A.    Finding #1:  The proposed amendment is consistent with and conforms to the objectives and policies of the General Plan and any applicable specific plan;
Flagstaff Regional Plan 2030
Policy LU.2.1. Design new neighborhoods that embody the characteristics of Flagstaff’s favorite neighborhoods – that is, with a mix of uses, a variety of housing types and densities, public spaces, and greater connectivity with multimodal transportation options.
Policy LU.11.4. Encourage various housing types that appeal to a diverse range of ages and income.
Policy LU.13.4. Plan suburban development to include a variety of housing options.
Goal NH.3. Make available a variety of housing types at different price points, to provide housing opportunity for all economic sectors.
Policy NH.3.1. Provide a variety of housing types throughout the City and region, including purchase and rental options, to expand the choices available to meet the financial and lifestyle needs of our diverse population.

Draft Flagstaff Regional Plan 2045
Policy DP.2 Support development and redevelopment with a diversity of housing types by expanding opportunities for missing middle housing.

The current Regional Plan is silent on the term “Middle Housing” but it supports the development of a range of housing types including those that are compatible with existing neighborhoods.  The draft regional plan includes only one policy specific to the support for the development of middle housing.  There are no policies in either plan that discourage the development of middle housing types in Flagstaff.

B.    Finding #2: The proposed amendment will not be detrimental to the public interest, health, safety, convenience, or welfare of the City;
The proposed amendment is intended to bring the City of Flagstaff Zoning Code into conformance with recently adopted state legislation regarding middle housing land uses.  However, instead of implementing on a limited basis as is required by the legislation, this amendment includes providing the allowances for middle housing throughout the city in every zoning district that currently permits single family dwellings.   The proposed amendment will not be detrimental to the public interest, health, safety, convenience, or welfare of the city.

C.    Finding #3: The proposed amendment is internally consistent with other applicable provisions of this Zoning Code.
The amendment is internally consistent with the existing Zoning Code, following its format and aligning with its comprehensive purpose. It does not conflict with any other provisions and ensures that the Zoning Code remains clear, usable, and easily understood.

Connection to PBB Priorities and Objectives:
Achieve a well-maintained community through comprehensive and equitable code compliance, and development that is compatible with community values.

Flagstaff Regional Plan 2030
Policy LU.2.1. Design new neighborhoods that embody the characteristics of Flagstaff’s favorite neighborhoods – that is, with a mix of uses, a variety of housing types and densities, public spaces, and greater connectivity with multimodal transportation options.
Policy LU.11.4. Encourage various housing types that appeal to a diverse range of ages and income.
Policy LU.13.4. Plan suburban development to include a variety of housing options.
Goal NH.3. Make available a variety of housing types at different price points, to provide housing opportunity for all economic sectors.
Policy NH.3.1. Provide a variety of housing types throughout the City and region, including purchase and rental options, to expand the choices available to meet the financial and lifestyle needs of our diverse population.

Draft Flagstaff Regional Plan 2045
Policy DP.2 Support development and redevelopment with a diversity of housing types by expanding opportunities for missing middle housing.

The current Regional Plan is silent on the term “Middle Housing” but it supports the development of a range of housing types including those that are compatible with existing neighborhoods.  The draft regional plan includes only one policy specific to the support for the development of middle housing.  There are no policies in either plan that discourage the development of middle housing types in Flagstaff.

Carbon Neutrality Plan
        DD-1 Encourage vibrancy, appropriate density, and attainability in existing neighborhoods, so that more residents live within walking distance of their daily needs.
        HA-1 Create housing options for households at all income levels and family sizes occupied by local residents.

10-Year Housing Plan
The following strategies outlined in the 10-Year Housing Plan are supported by the proposed Middle Housing Zoning Code Text Amendment:
Create 4: Amend the Flagstaff Zoning Code to facilitate the development of all housing types.

• Create 4.4: Review parking standards for all residential development with the goal of reducing the cost of development and increasing the number of dwelling units that may be achieved.
• Create 4.8: Explore allowing additional flexibility for homeowners and landlords to increase density.

Greater diversity of housing types paired with reductions in required onsite parking spaces can reduce construction costs and translate to reductions in housing costs as well. Permitting a wider variety of housing types (duplexes, triplexes, and quadplexes) introduces gradual density to existing neighborhoods, which helps maintain the area's character while creating income opportunities for existing households.
Connect 2: Implement a framework for centering equity in proposed and existing housing practices, policies, and programs.

• Connect 2.1: Evaluate housing policies and strategies in City of Flagstaff planning documents through an equity lens.

The proposed zoning code amendment improves equitable access to housing throughout Flagstaff and creates more diverse homeownership and rental opportunities for residents. 
Protect 2: Ensure affordable housing is a part of every Flagstaff neighborhood and work to address disparate impact as part of any development or redevelopment.

• Protect 2.2: Encourage diversity of housing options in all neighborhoods, understanding that exclusive communities are incompatible with the City of Flagstaff's mission to protect and enhance the quality of life for all.

Because these proposed code changes are being applied to most zoning categories, a greater diversity of housing types may occur throughout all areas of Flagstaff. This is a step in the right direction about displacement issues resulting from rapid gentrification in concentrated areas with more permissive zoning.