Toledo planners push ADU and legal nonconforming-lot text amendments to ease infill housing

City of Toledo planners on Sept. 17, 2025, presented two related zoning text amendments intended to expand housing options in existing neighborhoods: one to allow accessory dwelling units (ADUs) and another to permit residential construction on legally nonconforming lots. The Zoning and Planning Committee recommended both amendments be referred to the full City Council for approval.

Planning staff said the proposals are part of the city27s long-range housing initiatives under the Forward Toledo plan and aim to encourage infill, multigenerational living and incremental housing supply without changing base zoning districts.

Ryan Sunbolts, senior planner with the City of Toledo Planning Commission, and Esther Tetay, author of the ADU text amendment, explained the ADU proposal would permit one ADU per lot in single-family zoning districts. Key provisions explained by staff include:

- One ADU allowed per lot; ADU size capped at 60% of the existing primary structure. - Height limited to 20 feet or the height of the existing building, whichever is greater. - ADUs must be on a permanent foundation with the same utility hookups as the main structure; shipping containers and recreational vehicles would not qualify. - The ADU must meet the underlying district27s zoning requirements (setbacks, lot coverage) and be built to Ohio building-code standards.

Tetay cited jurisdictions27 experience around the country and said ADU sizes in other cities range broadly (commonly 400 to 1,100 square feet). She also estimated construction costs for ADUs generally run between approximately $60,000 and $285,000, and told council members staff planned education and technical assistance for residents interested in ADU construction.

Council members asked detailed implementation questions. One member asked whether the city would revisit the local definition of “family” and how occupancy limits would interact with ADUs; staff said the proposed text does not change the code27s occupancy or family definitions and noted that revising that definition could require a separate, more detailed text amendment. Council members asked how ADUs would interact with historic districts; staff said ADUs would remain subject to certificates of appropriateness and historic-preservation review where applicable and might be more constrained on appearance and materials.

Several council members raised utility and accessibility concerns. Staff said ADUs must connect to the primary structure27s utilities rather than creating separate sanitary or well systems; that requirement could create practical impediments where sewer connections are costly. Building-code compliance for accessibility would be enforced at the building-permit stage rather than within the zoning text.

Staff also presented a second related text amendment (M-7-25) to allow residential structures on legal nonconforming lots where the zoning district permits duplexes or triplexes but lot-width rules previously made only single-family development possible. The proposed change would allow those lots to be built according to the allowable residential forms in the zoning district, subject to existing setbacks and lot-coverage rules.

The committee recommended both text amendments for referral to the full City Council.

Ending: Both text amendments will be before the full City Council on Sept. 23, 2025, for final action; staff said it will provide guidance to residents about design, building-code requirements and permit processes if the council approves the measures.