Infill and the GMA (11/10/00)

1. What are the obstacles to infill?
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2. How does your agency promote infill development?
[ response ]

3. Do you believe the GMA has led to more infill development than otherwise would have occurred?
[ response ]

4. How often is affordable housing included in infill development?
[ response ]

M. Paine
environmental manager, City of Bellevue
1) Lack of strong policy guidance, innovative codes and citizen acceptance for flexible design alternatives and building types. This is especially true in suburban communities that have become cities, but is also true in Seattle neighborhoods.
2) Excessive parking requirements, particularly when transit is available.
3) Excessive open space requirements--typically infill in Bellevue is accomplished via our PUD ordinance. This requires 40% open space and 10% consolidated recreation area.
4) Strong neighborhood opposition to increased density much above underlying zoning. Great concern about associated traffic impacts, parking impacts, and natural systems impacts.
5) Insufficient infrastructure development to support infill--e.g. parks, pedestrian, and transportation improvements etc.

D. Broadie
City of Redmond
Land acquisition. Often infill is either poorly configured land (skinny lot or poor access, etc., land that has high amount of sensitive area, or is simply more expensive due to location.

S. Revell
planning manager, City of Kennewick
Density and the perception that too much open area is being lost in urban environments.

S. Haynes
City of Spokane
Often times lots available for infill development were passed over due to things like solid rock on the site or rock in the street which makes utility extension more expensive. There are several areas on the south hill that are like this, most notably in the Lincoln Heights area. On the flip side, we have wetlands due to the same rocky conditions.

Another notable problem is pure economics. When older houses burn down or are destroyed for whatever reason, the neighborhood is sometimes not as desirable as other places with newer construction. East and West Central neighborhoods are good examples, there are lots but the area in general makes the economics of new construction a dicey investment.

Existing inner city lots are also smaller in most cases than newer lots on the city fringe. The lots vary in width from 25-40-50 feet depending on the area. Add the current setback requirement of 5 foot side yards and this leaves a much smaller building envelope than the current minimum width of 60 feet.

R. Hough
City of Lynnwood
"Infill" comes in different sizes and shapes. An infill parcel may be large enough to accommodate a small subdivision, or just a single house. In our community, the main obstacles are probably "size", "shape" and "availability" of the infill parcel. These and other factors also help determine the financial feasibility of building something that "pencils out" for the builder. Most small vacant lots are left-overs that were not easily developed in the past and may still have some problems, such as environmental constraints, incompatible adjacent land uses, poor access, etc. In our community, an infill development is subject to the same development requirements as any other development, so there's no regulatory incentive (benefit) to develop scattered vacant lots. Availability is also a factor. In some cases, the adjacent property owner may be holding onto the lot to prevent its development to protect a view, to ensure personal open space, as a long-term investment or other reason. Another obstacle is sometimes the character and condition of the neighborhood. It's not easy to get financing to build a new house or apartment building in a run-down deteriorated neighborhood.

P. Cohen
City of Shoreline
Locally, neighbors who don't want to see the big lot next to them change and inflexible development standards. Outside the planning profession, people (particularily seniors and families) that percieve urban areas with mediocre schools, more crime and cheap gas and therefore have little incentive to move in town and invest in their community.

G. Steirer
City of Duvall
Good question. High zoning outside of UGAs and too high of zoning within the UGA prior to annexation are obstacles to infill. Availability of land is the biggest factor in infill in my opinion. If the city limits are too large (often caused by annexing more then necessary to support growth at the desired infill level), the overabundance of available land may result in a low level of density. Further, if the allowed density in rural or unincorporated areas are too large, then the market will support growth in the rural areas, and will not promote high level of infill.

Other obstacles include local city regulations which may cause development to be more expensive then outlying areas (other cities or the unincorporated areas), too low of zoning within the cities, and a poor economy within the area. The latter usually applies to more rural counties.

R. Hendricksen
City of Sequim
County regulations that permit large lot development without urban services outside of the UGA; using UGAs as receiving areas for TDRs where you can not get the planned density unless you purchase development rights (this only encourages decreased density inside of the UGA); lack of street and storm water improvements that are costly for new development.

K. Krippner
Snohomish County
It is not as attractive to developers because it usually is harder to do. You have to find a site that is large enough to make a profit. And sometimes access to the site is difficult. For example, I was the project manager for a 4-plex in unincorporated Lynnwood in an established neighborhood. The developer was very "small time" - doing development on the side while he operated his waste hauling business. He owned an unusual A-Frame 3-plex (circa 1970s) on the property which had a dirt parking lot and access road. The new development meant the whole site would have to be up-graded (think $$).

Some of the issues on this property were:

1) The developer needed to improve the dirt access road to meet fire code (wide fire engines) - this meant the developer had to cut down a row of pine/fir trees. Snohomish County doesn't have a tree retention ordinance and it was sad to see those trees go.

A rolled curb was installed too. These improvements really helped the look of the site however we just discovered (after the fact of approvals) that the road was built 2 feet short of the fire code's requirement so it has to be redone.

2) Sight distance was a problem for Public Works because the access road came out at a dip in the road and there wasn't adequate visibility to see on-coming traffic. The developer had to get a traffic study done. The issue was resolved when Public Works paved the road over the summer and raised the roadbed by several inches. Ironically, this improvement gave the site the visibility it needed.

So primarily, the obstacles to in-fill are the costs of upgrading sites (this often means going from older septic to hooking up to the new sewer line too) and meeting "new" codes.

Another important thing that I learned is that most developers do not think of projects as "in-fill" when there is 5 acres or more on the lot. One developer was sued by the neighborhood and learned the hard way that he IS doing in-fill.
H. Korve
City of Covington
Lot size.

G. Lee
City of Redmond
Sometimes the area to be infilled has inadequate infrastructure, i.e. sewer, and water, to simply acommodate the desired type of infill.

For Single family neighborhoods, the obstacles are neighiborhood perception and NYMBYism. Some people do not like new smaller infill lots near their homes.

D. Carlson
City of Spokane
Currently there are no obstacles to infill development in Spokane. In fact very little is left, and very little is for sale. By-passed lots with paved streets and utilities in place are at a premium for middle to lower income. The realtors have scoured the City seeking these lots which have the amenities provided. In the past we had one developer who would located un-inhabitable structures, and then pay the fire department to burn them down---cheaper than demolition! Fire Department got on the job fire training. It was a win-win situation, but other developers complained about it so now its standard demolition when they find them. These and undeveloped lots are scarce. The realtors have convinced some owners to part with their garden plot lots. So by-passed lots are not an issue in the older sections of the City.

Marketing practices of the sub-divider have changed. They no longer create by-passed lots. The lenders apparently will not lend a lot of bucks for large subdivisions. A large preliminary plat is done in phases of twenty (20) to thirty (30) lots. The next phase comes on line as the previous phase sells out. It is very clear as one drives thru the newer subdivision---no vacant or empty lots. Also with utility, paving, and sidewalk cost paid up front, they cannot afford to leave undeveloped lots.

Planner
City of Oroville
In rural communities, the primary obstacle may be that people are used to plenty of space. I work for two small communities (i.e., 1000-1500 population), and have worked for several more where this was the concern. However, the cost of extending infrastructure for growth, and the decline in available revenues, is beginning to make infill much more acceptable.

M. Pywell
City of Issaquah
The main obstacle to infill is the obvious reason that vacant lots were passed over when an area first developed. The vacant areas that are left frequently have steep slopes, wetlands or other critical issues involved. These issues often take "creative designs" to resolve the issues. The creative designs require more time from the applicant's engineers and architects and therefore, are more costly. Then it often takes more time for City staff to review the projects and determine whether or not the plans comply with the Code requirements. At this time City staff sometimes find that the Code does not address what is being proposed and this can require Code amendments or variance requests. This process can delay a project and raise the cost of the project for the developer.

B. Collins
City of Port Angeles
objections by surrounding property owners
passed over lots may be physically challenged or unbuildable
the detrioration of surrounding properties
existing traffic congestion discouraging increased density
harder to market properties here and there as opposed to many lots

J. Smith
City of University Place
I think Michael Paine, City of Bellevue in his response covered the issues quite well on obstacles to infill. I would add lack of flexible, innovative builders and developers in many areas of the state to the list of obstacles.

G. Fewins
City of Federal Way
Obstacles to infill can include major infrastructure upgrades (e.g. utilities; streets; drainage) in underdeveloped areas, neighborhood opposition to perceived neighborhood open space, and interconnecting dead end streets and adding more congestion to historically low volume neighborhood roads.

M. Paine
environmental manager, City of Bellevue
Promoted through specific infill focus on the Downtown and sporadic upzoning of parts of existing neighborhoods, or vacant land.

D. Broadie
City of Redmond
2 things come to mind. Redmond allows clustering to avoid sensitive areas. May allow less than required street access width for some poorly configured lots.

S. Revell
planning manager, City of Kennewick
Sticking to the UGA, negoitiating with Beton county to ensure that urban developmtnt only occurs in urban growth areas. We have a manufactured home infill process in our code so that a new manufacture home can go in an older underdevloped neighborhood if an old ramshackle home is taken out.

S. Haynes
City of Spokane
Our GMA effort will provide for smaller minimum lot sizes, reduced setbacks etc.

R. Hough
City of Lynnwood
Infill is recognized in the City's Comprehensive Plan as one of the ways in which our community will continue to grow and change. We don't "promote" infill development and we don't discourage it. It's allowed to occur through the normal evolution of the community. The City does review its Comprehensive Plan and Zoning periodically to make sure that all vacant properties are included in our "buildable lands" inventory and are zoned to allow the most reasonable and appropriate use.

P. Cohen
City of Shoreline
It hasn't. The City recently adopted code that require larger lots inorder to be sudivided and higher engineering standards to ensure larger road access. However, the city also adopted a cottage housing provision to allow double density of a single family lot if units are under 1000 SF, etc. Also we incentives for more development potential if a mixed use development is buildt with a residential component.

G. Steirer
City of Duvall
The city of Duvall promotes infill by giving density credits for environmentally sensitive areas and allowing "clustering". If a 5 acre parcel, zoned for 3 units per acre, has 2 acres of wetlands for, the developer would be allowed more then 9 units (5 acres - 2 acres = 3 acres). Therefore, high infill densities can occur, while still protecting the environment.

R. Hendricksenn
City of Sequim
We have provided for full water and sewer capacity for the UGA, zoned lareg areas for medium and high densities, have alternative subdivision provisions, density bonuses, and Mixed Use PUD zoning overlays. In addition the free market system will provide for in-fill if there is not an artificial constriction on available buildable land.

K. Krippner
Snohomish County
Snohomish County doesn't activity promote in-fill. The project described above was the only in-fill I worked on in 18 months in permitting. Currently, I work in long-range planning and haven't found any specific actions that encourage in-fill.

H. Korve
City of Covington
NO

G. Lee
City of Redmond
For infill development in the Redmond's downtown core, we encourage new multi-family housing by allowing greater density with the consolidation of smaller lots. For example, a 6,000 square foot lot has a permitted density of 30 du/ac. A 12,000 sq. ft. lot allows 45 du/ac, and a 18,000 sq. ft. lot allows 55 to 120 du/ac.

In single family zones of the City, we have reduced the minimum lot size, and slightly increased the density. This has provided an incentive for people to further subdivide their large lots which have existing homes on them.

D. Carlson
City of Spokane
This problem does not exist in Spokane. The realtors drive the streets looking for these lots with everything in place and paid for.

Planner
City of Oroville
Zoning provides for high density in areas of adequate infrastructure. For the small communities I work with, most infill occurs where it is allowed and encouraged which is close to the center of the community. For neighborhoods, we have looked to Accessory Dwelling Units; however, this is not often acceptable to the residents of small towns. Tonasket has been attracting retirees from other areas. These folks accept the higher densities close to downtown, clinic, hospital, etc. They don't have to walk but a couple blocks. We encourage infill here, and there is room for it.

M. Pywell
City of Issaquah
The City of Issaquah is growing rapidly. We do not promote infill development anymore than we promote any type of development. In fill development is occurring because the only vacant land left are the infill lots.

B. Collins
City of Port Angeles
favorable Comprehensive Plan policies
existing urban services are available
uses consistent with zoning are permitted, requiring little public review
because of the first three, little SEPA review required
assist inquiries concerning available buildable properties

G. Fewins
City of Federal Way
Federal Way codes hold infill development to the same standards as any other development. There may be some relief available on street improvements if urban street standards (e.g. installation of curb, gutter and sidewalk in areas without) would be out of character or result in safety hazards.

M. Paine
environmental manager, City of Bellevue
Undoubtably, but this is hard to quantify. Downtown development in Bellevue may have occurred irrespective of GMA.

D. Broadie
City of Redmond
Downzoning (which was part of GMA implementation) in King County probably reduced somewhat available land for new subdivisions which probably caused some developers to look for infill lots but the degree is hard to guage. Suspect desire for certain locations and the fact that people still seem be willing to pay premium for location, may have been more of a factor.

S. Revell
planning manager, City of Kennewick
Yes, but it all comes down to the UGAs and county development standards.

S. Haynes
City of Spokane
We shall see.

R. Hough
City of Lynnwood
Absolutely! By limiting the possibilities for urban sprawl, the GMA has helped turn the developers' attention back to the cities and urban areas and has made urban lands more valuable, even the small pieces.

P. Cohen
City of Shoreline
I have no idea.

G. Steirer
City of Duvall
Yes

R. Hendricksenn
City of Sequim
Only in those counties that have tried to comply with the spirit of GMA as opposed to tried to finds ways around it or look for minimum compliance. By its nature Counties are the key planning unit since the state has abidacted oversight and cities have no police power outside the city limit.

Washington does not have ahistory of making developmebnt pay its way including the payment of impact fees. where fees are being developed they are found in UGAs or only in cities when they should be placed on development outside of the UGAs to first pay cities for impacts and second to act a as disincentive; i.e. a traffic impact fee should be higher on property outside of the UGA than inside. Large lots outside of the UGA should pay an agricultural impact fee to be used to buy conservation easements.

K. Krippner
Snohomish County
Give GMA another 10 years. In Snohomish County, we built a little extra capacity in our growth boundaries. We are not yet pushing on the UGA boundaries. As pressure builds with the new OFM population numbers (coming soon to a government near you), I believe we'll see more in-fill.

H. Korve
City of Covington
YES

G. Lee
City of Redmond
Yes. It forces developers to look for real estate deals in the existing urban areas, as opposed to outlying forests and pastures.

D. Carlson
City of Spokane
This has all occurred in the last 15 years, and these lots simply not on the market. Cuerrent owner dies, and the realtor is at the door trying to buy the garden or second landscaped lot. The only problem is if the original builder had a very large site, and was not circumspect about where the building was sited. This sometimes results in the "By-passed Lot" not being able to provide legal building setbacks for both lots. They even managed to build houses which appear to meet the setbacks, but do not when the tape measure is used. We try to accomodate these "ERRORS" with Certificates of Compliance or Variances, both processes are expensive. The fees will usually run around 1200.00 to 1500.00 minimum to correct the error. Sometimes this cannot be done. When the attorneys arrive it really gets expensive!

Planner
City of Oroville
Again, recognize that one size does not fit all. Washington is big and not everyone is required to plan under the Act. GMA has not caused any recognizable change in the rate of infill development in the small towns where I've worked. In fact, we've been hoping that industry will find it more difficult to expand in urban areas so that we may experience a share of the economic boom in this state.

The cost of infrastructure for small towns is begininning to be the limiting factor.

M. Pywell
City of Issaquah
Yes, because of the growth boundaries that have been established and the changes to County Codes to reduce sprawl as required by the act.

B. Collins
City of Port Angeles
yes but it is not dramatic yet due to the inventory of undeveloped lots
GMA has supported the first four responses to #2
G. Fewins
City of Federal Way
GMA probably will turn development that would have occurred in rural areas outside of urban growth boundaries into urban infill areas. Substantive evidence of this might take a few years to demonstrate empirically.

M. Paine
environmental manager, City of Bellevue
Rarely in Bellevue.

D. Broadie
City of Redmond
Can't answer empirically but would suspect that it is less often that affordable housing is included because infill typically is more expensive to do.

S. Revell
planning manager, City of Kennewick
Its not in Kennewick.

S. Haynes
City of Spokane
Currently, more often than not. Since there are certain monetary breaks that come with such housing that allows a project to pencil out this is often used. Habitat for humanity is a good example, they have built quite a few homes in the inner city areas where the lots are cheaper to purchase.

R. Hough
City of Lynnwood
In our community . . . not often. Developers build what they can sell at prices the market will bear. The City doesn't place any affordability requirements on new development.

P. Cohen
City of Shoreline
Rarely if ever.

G. Steirer
City of Duvall
It's difficult for affordable housing to occur with infill development, as the price of land is usually higher then other areas.

R. Hendricksenn
City of Sequim
As per #2 above in-fill is more affordable because the infrastructure is already in place. it should be more affordable unless there is cheap land not too far away that does not require infrastructure development. Some vacant in-fill lots are vacant not becasue they were someones nest egg but because there was a problem with the site; i.e. too small, odd shape, easements, slopes, location, etc. These sites get a second look once the gravity model sets in and the land price further from the urban core and employment centers go up to the point they do not outway the inconvenience of travel to work and shopping.

K. Krippner
Snohomish County
This is tricky since in-fill by its nature is NEW which doesn't come out as very affordable. It also depends if we are talking multi-family or single-family. Many of Snohomish County's Housing Authority projects are "in-fill" but again, they are on large lots and don't look like conventional in-fill lot-by-lot (filling the blanks between houses).

H. Korve
City of Covington
Almost > never. Affordable houseing is only included in developments when it it > required or when attractive incentives are in place.

G. Lee
City of Redmond
In Downtown Redmond, all new multi-family housing projects with 10 units or more must provide 10 percent of the units as "affordable". As an incentive, the developer gets one (1) bonus market rate unit for each affordable unit they provide. If they provide "low cost affordable" units (50% of the King County median income) the get two (2) bonus market rate units for each "low cost affordable" unit they provide.

D. Carlson
City of Spokane
This is the good side of the situation. Usually the location is below par for the palatial mansions with four car garages the builders ususally want to build. They are forced to provide a lower to middle income single family home. We do have an Acessory Dwelling Unit program adopted in Spokane. Very few housing units have been in Spokane as ADU's in spite of the hue and crie of the opponents that it would destroy the single family residential neighborhoods---simply hasn't happened---costs too much!

Planner
City of Oroville
Frequently, since the cost of construction goes down when the infrastructure is already there. We would be sprawling all over the place if we would just provide the pipes, streets, etc. However, we don't have the competition for space that you find in an urban area; therefore, the cost of land for infill is probably higher in the city.

If you find the rural replies helpful keep asking. I appreciate the opportunity to share the rural perspective since many graduates will find themselves in policy creating jobs in the urban areas and may not recognize the need for flexibility when it comes to growth policies in rural areas.

M. Pywell
City of Issaquah
Only when the developer wants to include it.

B. Collins
City of Port Angeles
attractive where land is publicly owned or land values are low
not often where land values are high

G. Fewins
City of Federal Way
Federal Way codes do not require affordable housing but grants density bonus for including affordable housing in residential projects. In Federal Way, affordable housing would be a developer choice.