Richmond planners rolled out a revised version of the city’s Code Refresh zoning map on Nov. 18, pulling back on several proposals from the first version — including limits on height, density and where additional units can be built — as they try to balance neighborhood concerns with a growing demand for housing amid a shortage. 

While the proposal still moves toward allowing more “middle housing,” such as duplexes and small, multifamily buildings in areas traditionally limited to single-family homes, several elements of upzoning that fueled excitement and criticism in the first draft have been narrowed. 

One of the most notable changes is a shift in how additional units can be added to existing homes. The first draft permitted two units plus an accessory dwelling unit — like a detached in-law suite, a converted garage or a separate basement apartment — on almost any residential lot in the city. 

Under the revised version, homeowners can still add an extra unit, but only if the original house remains standing. 

In a September City Council meeting, some praised the plan for opening up the city’s density. But the majority of speakers raised concerns about the city’s infrastructure capacity, environmental stewardship and the potential impacts of upzoning on affordable housing and property assessments. 

The city also received nearly 700 pages of emails since the release of the first draft map in June. The majority opposed upzoning, saying it favored developers over residents and historic preservation. One email called on city planners to consider incremental zoning changes to prevent displacement, while another brought forth concerns of residents wanting their community to stay the same while subjecting others to upzoning. 

“It is this Not In My BackYard (NIMBY) attitude that concentrates poverty, displaces Black and Brown communities from their homes, and minimizes what is great about Richmond’s neighborhoods. Our community, as much as I wish it wasn’t, is segregated,” wrote Amelie Rives in an August email. 

The second draft marks a significant shift in the city’s effort to modernize its 50-year-old zoning code. Planning Director Kevin Vonck said in a Nov. 18 release that the newly proposed map makes it possible for Richmond to better align with current and future economic conditions, social preferences and environmental realities. 

“The zoning rules the City has relied on since 1976 no longer reflect the housing needs of Richmonders today,” Vonck said. “The proposed updates encourage a greater range of housing types and mixing of compatible uses that will lead to more vibrant neighborhoods for more Richmonders.” 

City residents voiced their concerns opposing upzoning by-right in certain areas like the 1st District via emails and map comments. Others felt that duplexes and upzoning should be allowed citywide, noting that affluent neighborhoods like Windsor Farms and Westhampton shouldn’t be immune to increased density. 

Housing affordability advocates said that while the second draft still represents forward momentum, added constraints could come at a price. 

“As written, the draft would allow duplexes on lots currently zoned for single detached homes only if the existing home is preserved. In many cases, that requirement may limit or prevent the creation of new, more affordable homes,” said Laura Dobbs, director of policy at Housing Opportunities Made Equal of Virginia. 

At the same time, Dobbs said, the updated proposal allows single-family homes to be demolished and replaced with larger, pricier “McMansions” — creating obstacles for creating the more affordable, more abundant housing options Richmond needs. 

Earlier this month, HOME of Virginia joined a newly formed coalition to ensure that Code Refresh creates opportunities for all. Dobbs said Homes for All Our Neighbors will take a closer look at this draft’s proposed approach and study its potential impact. 

The city’s second draft was crafted around four goals that balance new development while preserving the character of existing neighborhoods: New homes or buildings should complement the existing neighborhood; build thriving, walkable neighborhoods; preserve existing homes while also expanding housing options; and align zoning with existing building and safety codes. 

Under the updated map, new residential homes and mixed-use buildings must complement the existing neighborhoods by fitting the scale of their block. 

Larger apartment buildings will be permitted only in areas where similarly sized buildings already exist and any newly created lots must face the main street. The city is also encouraging walkable neighborhoods by allowing small conveniences like markets and restaurants in certain areas. 

“Great cities aren’t built for a moment, they’re built for generations,” said Angie Rodgers, Richmond’s director of economic development. 

By allowing more neighborhood-serving retail in strategic places, Rodgers said Code Refresh strengthens walkability and improves access to daily needs. 

In areas zoned for mixed use, rules require upper-floor step-backs so taller buildings don’t overwhelm the street, along with design standards to include wider sidewalks and more trees. Heights will also be aligned with what safety and building codes already allow — not beyond. 

But Charles Pool, a longtime resident of Oregon Hill who reviewed both drafts closely, said the second draft is actually worse than the first for his neighborhood. 

Pool, a member of the Oregon Hill Neighborhood Association and a resident since 1976, said the proposed increase in zoning in already-dense neighborhoods like his are counterproductive: “We’re very concerned that they’re not following their own designated instructions to have the heights and setbacks that complement what’s already on the block.” 

Pool said the neighborhood association is not against formalizing the upzoning of single-family homes, because most of Oregon Hill is already experiencing this. For Pool, the new issue introduced in the second draft is the proposed RM-A zoning in the neighborhood’s historic district of two-story dwellings — which has a higher density and higher height limit than what currently exists. 

For Jovan Burton, executive director of the Partnership for Housing Affordability, the second draft represents the city’s best attempt to respond in a more acute way to the concerns that have been elevated on many sides: from preservation to density to housing urgency. 

Burton said it’s important to look beyond the parts of Code Refresh that have generated the most contention and focus on the components of the plan that are essential to the city’s future success. 

The next Zoning Advisory Council meeting is scheduled for Dec. 10.