CITY OF ORANGE
SMALL LOT SUBDIVISION GUIDELINES
JULY 2021
Attachment 14
2 ORANGE SMALL LOT SUBDIVISION GUIDELINES
TABLE OF CONTENTS
INTRODUCTION 3
PURPOSE, GOALS, AND APPLICABILITY 4
RELATIONSHIP TO GENERAL PLAN 5
PROCESS 5
DESIGN GUIDELINES 6
INTRODUCTION
The City of Orange has a distinct community identity and a strong sense of place, attributable to the community’s efforts to preserve significant physical features, such as buildings, parks, and landscapes, that communicate
the City’s cultural, historical, and architectural past. Yet Orange is also a forward-thinking city that looks to adapt and innovate with respect to land development, while
ensuring the preservation of its community character.
In 2019, the City was awarded a SB 2 Planning Grant by
the California Department of Housing and Community
Development (HCD) for the preparation of a small lot
subdivision ordinance to accommodate non-traditional
residential development, specifically on smaller infill sites. In concert with these guidelines, the ordinance is intended to streamline the design review and entitlement process for small lot subdivision development to create efficiencies for housing production in the City by reducing the time, uncertainty, and complexity of approval and
permitting for such projects.
The small lot subdivision ordinance allows for the
development of smaller fee simple, single-family
residential lots in the multi-family residential zones (R-3 and R-4) and in the NMU-24 mixed use zone. The single-
family residential lots created through the ordinance
are less than the typical minimum area of a standard
single-family lot (e.g., 5,000 sf. and minimum lot width of 50 ft. for an R1-5 lot). The ordinance amended Title 17 (Zoning) of the Orange Municipal Code (OMC) to establish new development standards for small lot subdivisions.
These new development standards include regulations
for lot frontage, setbacks, height, private open space, and parking. Furthermore, under the ordinance, small
lot subdivision development is subject to final approval by either the Community Development Director or the
Planning Commission.
Small lot subdivisions provide a space-efficient and
economical alternative to traditional options for
homeownership in the City of Orange. They reduce the
amount of land required for new single-family residences, which potentially creates opportunities for more
affordable homeownership through lower land costs. In
addition, small lot subdivisions allow a greater variety in lot sizes and flexibility in lot configuration, which promote urban infill, a diversity of housing types, and neighborhood stability.
ORANGE SMALL LOT SUBDIVISION GUIDELINES
3 These potential benefits can come with development
complexities. Small lot design and layout require unique considerations with respect to small lot sizes and irregular lot configurations, parking and vehicle access, adequate access to air and light, and outdoor space and privacy.
In addition, a small lot subdivision’s relationship with surrounding existing developments in an established
neighborhood and public areas, such as streets and
sidewalks, also plays a critical role in shaping its design and layout. The purpose of this document is to address
these spatial complexities and ensure neighborhood
compatibility through design guidelines. These guidelines are intended to be used to support the implementation
of the small lot subdivision ordinance.
PURPOSE, GOALS, AND
APPLICABILITY
Purpose of the Guidelines
These guidelines are intended to convey to property
owners and developers the fundamental expectations the
City has for the development of small lot subdivisions. This document offers guidance to promote context-sensitive
small lot subdivision development.
Goals
These guidelines provide direction for the design of a small lot subdivision project. They illustrate options, solutions, and techniques to achieve high-quality design in new
small lot subdivision development. The guidelines aim to accomplish the following goals:
» Ensure that new small lot subdivisions fit into the
existing neighborhood context.
» Introduce new dwellings and a new housing typology
that maintains and responds to the existing urban form. » Promote walkable urbanism through infill development. » Achieve high-quality new urban design.
Applicability
These guidelines shall apply to all small lot subdivision development that is subject to design review as outlined in OMC Section 17.14.270.
Small lot subdivision development located within
the boundaries of a historic district is also subject to compliance with the relevant historic preservation design standards. Where these guidelines conflict or overlap with the historic preservation design standards, the historic 4 ORANGE SMALL LOT SUBDIVISION GUIDELINES
preservation standards shall prevail. Likewise, small lot subdivision development located within the Single
Story Overlay District is also subject to the development standards of the overlay, and therefore the height of all buildings within the Single Story Overlay District shall be limited to one story or 20 feet, whichever is less.
RELATIONSHIP TO GENERAL PLAN
The General Plan provides the blueprint for long-term
development in the City of Orange. It identifies a number of goals and policies related to housing production,
preserving community character, and encouraging and
accommodating new development. Included in the Land
Use Element of the General Plan are the following policies:
» Policy 1.3: Provide a range of housing densities and
types to meet the diverse needs and lifestyles of
residents.
» Policy 1.6: Minimize effects of new development on the privacy and character of surrounding neighborhoods.
» Policy 6.1: Ensure that new development is compatible with the style and design of established structures and the surrounding environment.
In addition, a specific Housing Element policy supports small lot subdivision development:
» Policy Action 7: Facilitate Infill Construction
The Small Lot Subdivision Guidelines are consistent with and further the General Plan goals and objectives.
PROCESS
Any small lot subdivision development involving four
or fewer lots and to which the parcel map provisions of the Subdivision Map Act and City of Orange Subdivision
Ordinance apply, is subject to review and approval by
the City’s Design Review Committee (DRC) and the
Community Development Director prior to the issuance
of building permits.
For small lot subdivisions involving five or more lots, the tract map provisions of the Subdivision Map Act and City of Orange Subdivision Ordinance apply. In this case, the project requires approval by the DRC and the Planning
Commission.
Furthermore, some small lot subdivision projects may
also require approval by the Planning Commission if they involve the need for a variance, conditional use permit, or major site plan review in accordance with Chapter 17.10 of the Orange Municipal Code (OMC). City staff will work with
ORANGE SMALL LOT SUBDIVISION GUIDELINES
5 applicants to determine the appropriate approval process for your project. The review process is initiated through the filing of a Land Use Application with the Planning
Division of the Community Development Department.
Application materials and submittal requirements can
be obtained from City staff or by visiting the Planning Division webpage at: https://www.cityoforange.org/287/
Planning-Division.
DESIGN GUIDELINES
A. Neighborhood Context
The successful fit of a new small lot subdivision project into an existing context depends on how well it relates to neighboring buildings and with the public realm, such as the street and the sidewalk. New small lot development
needs to occur through compatible massing and
thoughtful design. When considering neighborhood
compatibility, the focus should be on basic patterns, which are defined by recurring characteristics such as building scale and massing in the vicinity, and the streetscapes in the neighborhood.
1. Scale and Massing
Buildings within a small lot subdivision should respect adjacent buildings by responding to their scale, massing, and need for light, natural ventilation, and views. Small lot subdivision development should follow the established
size, shape, and form of the surrounding neighborhood
through the use of similar proportions and details.
a. Design small lot homes to be similar in scale and
to have similar forms and shapes to nearby and
surrounding buildings to avoid the appearance of being
Figure 1: Small lot subdivision development should follow the established size, shape, and form of the surrounding neighborhood through the use of similar proportions and details. In this example, the house in color is disproportionate in scale compared to the surrounding houses. 6 ORANGE SMALL LOT SUBDIVISION GUIDELINES
overwhelming or disproportionate in comparison and
to maintain existing massing patterns.
b. Where the scale of proposed small lot homes
exceeds that of the immediately surrounding lots, use
transitional design elements, such as architectural
elements and features, stepping back upper floors,
varied forms or articulated massing, or vertical and
horizontal projections to provide a human scale and
visual relief.
c. Provide variation in building massing and placement
to create contrast in the façades and to allow for more articulated building design.
d. Small lot homes shall be unique in design so that there is variety between the dwellings within a subdivision.
Variations in building design may include changes
in building orientation, primary entryways, façade
articulation, doors and windows, varied roofline, etc.
2. Access and Connectivity
An important determinant of whether a small lot
subdivision development fits into the existing context
is how it connects to the public realm and completes
the streetscape. The character of the public realm is
compromised when parking, driveways, and garages
dominate the streetscape and undermine the aesthetic
quality and walkability of the street. Access to a small lot subdivision should be designed to reinforce the residential and pedestrian-friendly character of the street.
a. Coordinate the placement of curb cuts to minimize
the width and frequency of curb cuts, to maximize the
number and size of on-street parking spaces available,
and to promote continuity of the sidewalk.
b. When an alley is present, utilize the alley for vehicular access.
c. Provide pedestrian pathways from the public street (or right-of-way) to all primary entryways and common
areas, such as common open space areas, guest
parking, mailboxes, and centralized trash enclosures.
Pathways shall be a minimum width of 3 feet.
d. Provide pedestrian pathways separate from the
driveway whenever possible. When the driveway
provides pedestrian access to individual dwellings, a
distinguishable path shall be provided and treated
with a change of materials, finishes, pattern, or paving that differentiates the pathway from vehicular traffic.
ORANGE SMALL LOT SUBDIVISION GUIDELINES
7 B. Site Planning
A small lot subdivision’s site layout and circulation,
the façades and entryways of the dwellings, and the
landscaping along the development’s perimeter all
contribute to the overall quality of the streetscape and to the subdivision’s relationship with the street. Yet
by its very nature, small lot design is confronted with spatial challenges. A small lot subdivision’s topography, geometry, location, and orientation are all factors that must be considered when site planning.
1. Building Orientation
Buildings should have a strong relationship to the street they front and should be oriented to positively define and frame adjacent public streets. However, the dimensions of a project site play a critical role in determining the layout of a small lot subdivision.
a. Small lot homes that have street frontage shall be
oriented toward and have direct pedestrian access to
the public right-of-way. Where there is a physical site constraint, a clearly identifiable entry to the site shall be provided from the right-of-way (Figure 2).
b. Small lot homes located in the interior of the
subdivision shall orient the primary entryway toward
and be visible from a pedestrian pathway that is
connected to the public right-of-way or private street
(Figure 3).
c. Small lot homes that front an alley shall orient
the primary entryway toward the alley, or shall be
connected to a pedestrian pathway that leads directly
to a public right-of-way (Figure 4 and Figure 5).
d. Creation of a safe environment should be considered
when planning the orientation of buildings in a small
lot subdivision. Primary entryways should be easily
identifiable and accessible to emergency services,
and windows, lighting, and landscaping should be
designed and properly placed to allow for maximum
visibility and natural surveillance of the site.
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9 Figure 2: Small lot homes that have street
frontage shall be oriented toward and have
direct pedestrian access to the public right-of-
way.
Figure 4: Small lot homes that front an alley shall
orient the primary entryway toward the alley, or
shall be connected to a pedestrian pathway that
leads directly to a public right-of-way..
Figure 3: Small lot homes located in the interior of
the subdivision shall orient the primary entryway
toward and be visible from a pedestrian pathway.
Figure 5: Small lot homes shall be connected to a
pedestrian pathway that leads directly to a public
right-of-way.
RIGHT-OF-WAY
RIGHT-OF-WAYRIGHT-OF-WAY
Back PatioPRIVATE ROAD
ALLEY/ DRIVEWAY
ALLEY/ DRIVEWAY
ALLEY/ DRIVEWAY
ALLEY/ DRIVEWAY
RIGHT-OF-WAY
Garage
Garage
Garage
Front Entryway
Front Entryway
Garage
Driveway
2. Primary Entryways
Building entrances are an important building feature,
providing the connection between the public realm of
the street and sidewalk, and the private realm of the
dwelling. A well-designed building entrance will appear welcoming and inviting to the pedestrian, making the
neighborhood a pleasant place to live. In addition to the doorway itself, the entry may be comprised of stairways, landings, porches, and other elements.
a. Place the primary entryways of street-fronting small lot homes on the front façades so that the entryways
face the street.
b. Incorporate transitions such as landings, porches, and patios in the articulation of the primary entryways.
c. Primary entryways shall provide the address or unit
identification, and ornamental low-level lighting to
illuminate the entry area.
d. Primary entryways shall be well-articulated in order to enhance the overall quality of the entrance.
Elements may include raised landings, recessed
doorways, overhangs, side window panels, decorative
hardscaping in the landing area, etc.
3. Existing Site Features
Unique natural characteristics, such as mature trees and topography, on both the project site and adjacent sites should be respected and taken into account in new
building design and subdivision layout.
4. Privacy
As with any infill development, some loss of privacy to existing neighboring buildings can be expected with the introduction of a small lot subdivision in an urban setting.
To mitigate against any unusual impact on privacy to
neighboring interior living spaces, design modifications can be integrated to minimize the impacts
a. Incorporate landscaping and green screens, where
appropriate, between buildings on adjacent properties.
b. Use solid railings on upper-level balconies and decks. c. Arrange window configurations that break the line of sight between houses.
d. Use translucent glazing such as glass block or frosted glass on windows and doors facing openings on
abutting structures.
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C. Building Character
Thoughtful architectural design means that buildings are conceived holistically. Once a small lot subdivision has been fitted into its neighborhood context, and its relationship to the streetscape has been set, the various architectural issues of the small lot homes can be resolved. There are many opportunities in the building design, including
the selection of materials, window and door assemblies, colors, finishes, balcony orientation, and landscaping
and hardscaping where architects and builders can offer creative solutions to further enhance the overall character of a building and improve the livability within a small lot subdivision.
1. Building Articulation
A building’s architectural details, openings, and materials provide the finishing touches that convey a sense of
quality and define the building’s character. Architectural details have a great impact on how a building is perceived, and provide visual interest, texture, and richness. Small lot homes with virtually identical forms can appear
dramatically different due to their details. Meanwhile, the use of compatible details visually unifies a small
lot subdivision with neighboring buildings, providing
continuity and reinforcing the architectural character of an area.
a. All building façades and exterior building elevations facing a street or the project perimeter shall be treated with an equal level of detail and articulation.
b. Use a combination of materials, textures, colors,
architectural treatments, and details to accentuate
variations in building massing and to add visual
interest to the building elevations.
c. Avoid the creation of uninterrupted blank wall surfaces on the building elevations, especially those facing a
street or common open space area, by breaking the
wall plane a minimum of 6 inches in depth at least
every 20 linear feet and employing varied massing
and architectural elements.
d. Strategically place doors, windows, and other openings to create visual interest and provide visibility from the street-fronting small lot homes to the street.
e. Use porticos, awnings, terraces, balconies, or trellises to provide variations in the building plane.
f. Apply additional architectural enhancements to the
ground floor at the primary entryway, so as to create
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11 a human scale to the building. Enhancements may
include handrails, fixed planters, and ornamental
details, such as lighting, molding, or tiles.
2. Roof Form
The roof is one of the most distinguishing elements on a building or home, and the collection of roofs in a small lot subdivision or along a streetscape create a “roofline,” which is the profile of the buildings against the sky. To design a visually stimulating house, varied roof types may be used together or the same roof type may be utilized in different ways. This creates a home that uniquely responds to both its interior function and its exterior individuality. Small lot home roofs should be well-articulated and should
consider the types of rooflines found on surrounding
buildings.
a. Rooflines and roof shapes should be consistent with
the design and structure of the building itself as
well as with the rooflines found in the surrounding
established neighborhood.
b. Roof forms should reflect the facade articulation and building massing, as opposed to a single-mass roof
over an articulated facade.
c. Roof articulation may incorporate varying roof planes, sloped roofs, open decks, corner balconies, step backs, or any form of roof modulation that adds visual interest and decreases the perceived scale of the residence.
Figure 6: All roof decks along the project perimeter and abutting residential uses shall be stepped back a minimum of 5 feet from the roof edge, so that they are oriented away from and screened to prevent direct views of abutting residential neighbors.
12 ORANGE SMALL LOT SUBDIVISION GUIDELINES
STEP-BACK
ROOF DECK
3. Private Open Space and Roof Decks
Outdoor living spaces can make a small lot home feel
more like a traditional single-family residence and provide a number of other benefits toward creating healthy and
livable communities. Private open space in a small lot
subdivision can be in the form of a fenced yard or patio at ground level, or balconies or decks above ground level.
Private open spaces should be designed to be inviting
and usable for seating, dining, play equipment, gardening, and other outdoor living activities.
a. When feasible, locate private usable open space next to primary living areas so that the private usable
open space functions as an outdoor extension of the
adjacent living room, family room, dining room, or
kitchen.
b. Provide ground level private usable open space that
is directly accessible from an indoor living space with a door that opens onto it. Ground level open space
should have a minimum width and length of 10 feet.
c. Provide upper-level private usable open space,
such as balconies or decks, that is large enough to
accommodate several chairs. Balconies and decks
should have a minimum dimension of 7 feet.
d. Roof decks are a way to maximize access to private
outdoor space, light, and air in a small lot subdivision.
Roof decks must, however, be designed with the
privacy of residential neighbors in mind.
i. All roof decks along the project perimeter and
abutting residential uses shall be stepped back a
minimum of 5 feet from the roof edge, so that they
are oriented away from and screened to prevent
direct views of abutting residential neighbors. Roof
decks facing a right-of-way are not required to be
stepped back (Figure 6).
ii. Rooftop guardrails, trellises, and other structures should be designed in a manner that is consistent
with the architectural language of the rest of the
building.
iii. Rooftop structures, including guardrails, shall be counted towards building height.
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13 4. Landscape and Hardscape
Landscape and hardscape within a small lot development
should add to the character of the new buildings, facilitate sustainable water use, and be relatively easy to maintain.
The landscape design should be integrated with the small lot homes and enhance the natural environment of the
neighborhood.
a. All setback and open areas not used for buildings,
parking areas, driveways, pedestrian pathways,
and utilities shall be attractively landscaped and
maintained.
b. All yards abutting the street shall be improved with landscaping (combination of groundcover, shrubs,
and trees) and amenities. Amenities may include:
decorative fencing, garden walls, pedestrian pathways,
uncovered patios, seating areas, and/or decorative bike racks.
c. Plants adapted to the local climate, soil, and hydrology should be used to reduce the need for irrigation. For
suggested plant and tree species, please refer to the
City of Orange Landscape Standards and Specifications.
d. Landscaping should be used to soften walls and
fences and provide a green screen, where appropriate,
between buildings on adjacent properties.
e. Walls and fences exposed to public view (e.g., along the street or common open space areas) are subject
to the following:
i. The form of walls and fences and their materials
should be consistent with the architectural style of
the homes within the small lot subdivision.
ii. Walls and fences should be articulated in a manner
that adds architectural interest.
f. Trash containers should be screened from public view by opaque walls or fences subject to the rest of the
recommendations under these guidelines and to
OMC Section 17.14.270(I).
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15