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Item 03 Update on Recreational Vehicles as Temporary Housing
AGENDA ITEM SUMMARY SPRINGFIELD CITY COUNCIL Meeting Date: Meeting Type: Staff Contact/Dept.: Staff Phone No: Estimated Time: Council Goals: 9/12/2022 Work Session Katie Carroll/DPW 541-726-3660 15 Minutes Promote and Enhance our Hometown Feel while Focusing on Livability and Environmental Quality ITEM TITLE: UPDATE ON RECREATIONAL VEHICLES AS TEMPORARY HOUSING ACTION Provide direction on quantifying the number of recreational vehicles (RVs) being REQUESTED: occupied as temporary housing in Springfield. ISSUE The City has temporarily allowed the occupancy of RVs as a temporary housing STATEMENT: measure since October 2020. Council is interested in additional information on the use of this measure. ATTACHMENTS: Attachment 1: Council Briefing Memo - Update on RV Occupancy Attachment 2: Temporary Guidelines for RV Occupancy on Private Property Attachment 3: Presentation slides - Update on RV Occupancy DISCUSSION/ On October 19, 2020, City Council adopted Resolution 2020-34 which temporarily FINANCIAL suspends enforcement of the City's prohibition of RV occupancy, allowing their IMPACT: use as temporary housing when parked on private property and following certain guidelines. Council reviewed this measure on May 17, 2021 and determined it should continue in response to the ongoing need for housing options in the community. In the May 9, 2022, work session Council reviewed the measure again and found that the guidelines were working to maintain health and safety for residents, property owners, neighbors, and the public. Council directed staff to continue allowing RVs to be used as temporary housing for another year. To understand the use and impact of the measure on the community, Council directed staff to: • Track complaints related to violations of the City's guidelines • Try to determine how many RVs are being occupied as temporary housing The number of complaints the City has received which include a complaint about RV occupancy on private property has been similar in the years since the guidelines were adopted as compared to prior recent years. As directed, staff are tracking the complaints related to RV occupancy. Staff have identified several options to address Council's request to quantify the number of RVs being used as temporary housing, including making no effort to quantify the use, creating a registration system, or developing a methodology and conducting a sample survey. Depending on the approach Council pursues, implementation could take up to 200 hours. MEMORANDUM City of Springfield Date: 9/12/2022 To: Nancy Newton COUNCIL From: Katie Carroll, Housing Analyst BRIEFING Sandy Belson, Interim Planning Section Manager Subject: Update on Recreational Vehicles as Temporary MEMORANDUM Housing ISSUE: The City has temporarily allowed the occupancy of recreational vehicles (RVs) as a temporary housing measure since October 2020. Council is interested in additional information on the use of this measure. COUNCIL GOALS/ MANDATE: Promote and Enhance our Hometown Feel While Focusing on Livability and Environmental Quality BACKGROUND: To respond to household displacement caused by the Holiday Farm Fire, COVID-19 pandemic, and the regional housing shortage which has limited affordable temporary housing options, City Council adopted Resolution 2020-34 on October 19, 2020. The resolution temporarily suspends enforcement of the City's prohibition of RV occupancy, allowing RVs to be used as temporary housing when parked on private property if the property owners and RV occupants adhere to certain RV occupancy guidelines (attached). Council reviewed this measure on May 17, 2021 and determined it should continue in response to the ongoing need for housing options in the community. In the May 9, 2022, work session Council reviewed the measure again and found that the guidelines were working to maintain health and safety for residents, property owners, neighbors, and the public. Council directed staff to continue allowing RVs to be used as temporary housing for another year. Council directed staff to track complaints related to the City's guidelines, as well as to try and determine how many RVs are being occupied as temporary housing under this measure to understand its use and impact on the community. This memo details options for responding to Council's request for additional information on this topic and requests Council direction. TRACKING COMPLAINTS AND VIOLATIONS: Based on complaint data, implementation of the temporary RV occupancy measure has not correlated with an increase in related complaints to date. The number of complaints the City has received which include a complaint about RV occupancy on private property has remained similar since the measure's implementation in Fall 2020 as compared to recent prior years. Dumber of Complaints Including Occupied RVS on Private Property 30 25 2) 15 10 2018 2014 2020 2021 2022 Year City of Springfield code complaint data 2018 through August 31, 2022, visualized by quarter The number of complaints received which include a complaint about RV occupancy does not necessarily equate to actual violations of the RV occupancy guidelines. Code enforcement may respond to a complaint about an RV and find that it is in compliance or may respond to a complaint about a different matter and subsequently find an RV in violation of the City's guidelines. Staff is tracking both complaints and violations related to RV occupancy on private property moving forward and will provide an update to Council at its next check-in on this topic. QUANTIFYING RV USE AS TEMPORARY HOUSING: Staff have identified three options to respond to Council's request to quantify the number of RVs being occupied as temporary housing on private property (outside of manufactured dwelling parks and campgrounds or through the overnight parking program), including benefits and drawbacks of each option. Option A: Make no effort to quantify the use. Continue to respond to complaints of violations of the RV occupancy guidelines. Staff would continue to operate as it has since the resolution's adoption. Code enforcement would continue to respond to and address complaints about RVs in violation of the City's guidelines. Staff would check in with Council in Spring 2023 and provide code enforcement data as directed by Council. This option would create no additional administrative burden to operate, however it would not yield an estimate of how many RVs are in use as temporary housing. Option B: Implement a registration system to track RVs being used as temporary housing. In addition to responding to code complaints and providing code enforcement data as directed by Council, staff would create a simple, free registration system for RVs being used as temporary housing on private property. The registration system would allow the City to begin quantifying the use of the measure, ensure registrants are aware of the City's guidelines, and have a method to inform RV occupants and property owners if Council ends the measure. Outreach could help to boost registration, but this option would be unlikely to yield a complete count of RVs being occupied as temporary housing. In addition to creating a registration system, staff would do outreach to known RV occupants, as well as to the public through a webpage and the affordable housing newsletter. Staff would also bring a resolution to Council to update the RV guidelines to require RVs to register with the City. This approach is estimated to involve approximately 20 hours of staff time to implement. Option C: Develop a methodology to estimate the number of RVs being occupied as temporary housing and conduct a survey. In addition to responding to code complaints and providing code enforcement data as directed by Council, staff would design a methodology to conduct a field survey to count the number of RVs in Springfield being used as temporary housing on private property. Staff s preliminary plan for conducting a survey would be to identify several sample areas of the City, conduct reviews of recent aerial photographs to identify potential RVs in those areas, and then conduct a field survey to determine if RVs are present and being occupied. Staff have identified several limitations to this option. RVs are not evenly distributed throughout the city so a sample study like this would require several assumptions to be made and is unlikely to yield an accurate count. Determining whether an RV located on private property is being stored or occupied may be challenging and require multiple visits at different times of day. RVs that are not visible from the public right-of-way may be missed or more difficult to assess for occupancy. Staff estimates it could take 100-200 hours to fully design a methodology and conduct a sample survey. If Council wishes to pursue this option, there are three alternatives for implementation which would vary in cost and administrative burden for the City: 1. Staff designs a methodology and seeks an intern to conduct a field survey. 2. Staff designs a methodology and uses staff time to conduct a field survey. 3. Staff puts out a request for proposal (RFP) to solicit a contractor to design a methodology and conduct a field survey. Question for Council: Which of the following options should the City proceed with related to quantifying RVs in use as temporary housing? Option A Option B Option C 1. (Intern) 2. (Staff) 3. (Contractor) RECOMMENDED ACTION: Proceed with Option B, not because it will yield an accurate count, but so that we have a way of notifying program participants when occupying an RV would no longer be allowed. THESE GUIDELINES DO NOT APPLY TO: 0 RV Parks. © Manufactured dwelling parks. 0 Campgrounds. Q Churches and industrial sites that participate in the Overnight Parking Program. RV DEFINITION Recreational vehicle is defined in the Springfield Development Code as: //Avacation trailer or other unit, with or without motive power, which is designed for human occupancy and to be used temporarily for recreational, seasonal, or emergency purposes and has a gross floor space of less than 400 square feet. The term includes camping trailers, camping vehicles, motor homes, park trailers, bus conversions, van conversions, tent trailers, travel trailers, truck campers, and any vehicle converted for use or partial use as a recreational vehicle. The unit shall be identified as a recreational vehicle by the manufacturer or converter." For purposes of these guidelines, an RV also includes a tiny house on wheels suitable for transport on a public street. Recreational Vehicle Owners! Due to the heightened need for temporary housing in our community, the City of Springfield will allow temporary occupancy of recreational vehicles (RVs) when they are parked on private property as described here. City staff will use these guidelines for the temporary measure and continue to uphold safety and health standards aimed at protecting the occupants of the RVs. All other city ordinances for the protection of health and safety shall remain in effect. Failure to follow these guidelines in a manner that threatens the health and safety of the temporary residents, property owners, neighbors or public may result in enforcement actions. General Guidelines • RV must be Roadworthy. • The RV must be in a drivable or towable condition and licensed as appropriate. • RVs that cannot be easily driven from the property are deemed a and subject to code enforcemer • No structures shall be connected to the RV. • All personal items shall be kept in the RV or otherwise screened from view from any public right-of-way (including alleys). • Property owners may not charge rent, but may ask the RV occupants to contribute toward utilities. Good Neighbor Approach A good neighbor approach is strongly recommended for all property owners, business owners, and temporary residents. The City will continue to take action to enforce noise, sanitation, nuisance, and other public health and safety code violations. RVs are not allowed on vacant lots. Attachment 2 Page 1 of 2 RVs may be parked on property developed with a single-family house or a duplex. • Property owner may grant permission for one RV. • RV must be parked in a legal parking area (driveway) or parked behind the front facade of the house. (Springfield Municipal Code 5.002(11) — Prohibited parking) Property owners of commercial businesses, • public entities, and religious institutions/ places of worship may allowRVs. • Property owner may grant permission for one • or more RVs. • • RVs must be parked within the parking lot. • RVs parked behind the front fa4ade of the primary • Any additional structures (carports, sheds) provided for structure may be screened using standard ; the use of the RV occupants must comply with the zoning fencing materials. requirements of the district. • The RV must be parked at least three feet from any interior property line and shall not create a sight or physical obstruction for traffic (including pedestrians). • It is recommended that the RV be parked at least three feet from any structure. • Any additional structures (carports, sheds) provided for the use of the temporary residents must comply with the zoning requirements of the district. Sanitation Facilities must be provided for the RV occupants. • Residents may make sanitary facilities available within the primary residence. • The RV occupants may use holding tanks within the RV that are emptied off-site. • A certified vendor may go to the site to pump out RV holding tanks. • The property owner may allow an RV connection to an existing sanitary sewer line, contact the City for applicable requirements. • Portable toilets are not allowed. Electrical connections may be provided to the RV. • An extension cord may be extended from an approved outlet. • The property owner may obtain approval for and install a pedestal for a plug-in, contact the City for applicable permits. • Use of generators is not allowed. • Hard (permanent) connections are not allowed. Sanitation Facilities must be provided for the RV occupants. • Business/property owner may make sanitary facilities • available within an existing structure. • • Business/property owners may provide portable toilets that are regularly serviced and maintained. • The RV occupants may use holding tanks within the • RV that are emptied off-site. • • A certified vendor may go to the site to pump out RV holding tanks. • The property owner may allow an RV connection • to an existing sanitary sewer line, contact the City for applicable requirements. Electrical connections may be provided • to the RV. • An extension cord may be extended from • an approved outlet. • The property owner may obtain approval for • and install a pedestal for a plug-in, contact the City for applicable permits. • Use of generators is not allowed. • Hard (permanent) connections are not allowed. Garbage Service must be provided. • The business/property owner must have regular garbage • service and allow the RV occupants to utilize this service. Community Development Division Permits for utility hookups: Development & Public Works Department Chris Carpenter, City of Springfield, Oregon ccarpenter0springfield-or.gov ddpwC@springfield-or.gov • springfield-or.gov • 541.726.3753 All other RV inquiries: Garbage Service must be provided. Sandy Belson, • The residents must have regular garbage service 0SPRINGFIELDOR0SPFLDOREGON sbelson springfield-or.gov and allow the RV occupants to utilize this service. ®CITY -OF -SPRINGFIELD p OO CITYOFSPRINGFIELDOREGON UPDATED: APRIL 28,2022 Attachment 2 Page 2 of 2 SP0.INGFiV GON Complaints - RV Occupancy Number of Complaints Including Occupied RVS on Private Property Year City of Springfield code complaint data for 2018 through August 31, 2022, visualized by quarter Attachment 3 Page 1 of 3 20211 Quantifying RVs Used As Temporary Housing Option A Don't Quantify Use • Respond to complaints and violations only • Council check-in • No additional administration time SPRINGFIELD ��EGON Option B Registration System • Require registration • Ability to follow up and educate on guidelines • Incomplete count • 20 hours Attachment 3 Page 2 of 3 Option C Sample Survey Design methodology • Conduct survey • Intern • Staff • Contractor • Limitations to accurate count 100-200 hours Which of the following options should the City proceed with related to quantifying RVs in use as temporary housing? • Option A: Make no effort to quantify the use. Continue to respond to complaints of violations of the RV occupancy guidelines. • Option 6: Implement a registration system to track RVs being used as temporary housing. • O tion C: Develop a methodology to estimate the number of RVs being occupied as temporary housing and conduct a survey. 1. 2. 3. SPRINGFIELD ��EGON Intern Staff Contractor Attachment 3 Page 3 of 3