HomeMy WebLinkAboutDSD-2025-411 - Enabling Four Units - One Year Follow-upStaff Report
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Development Services Department www.kitchener.ca
REPORT TO: Planning and Strategic Initiatives Committee
DATE OF MEETING: October 27, 2025
SUBMITTED BY: Rosa Bustamante, Director of Planning and Housing Policy/City
Planner, 519-783-8929
PREPARED BY: Katie Anderl, Project Manager - Planning, 519-783-8926
WARD(S) INVOLVED: All Wards
DATE OF REPORT: October 9, 2025
REPORT NO.: DSD -2025-411
SUBJECT: Enabling Four Units — One Year Follow-up
RECOMMENDATION:
That Council endorse the next steps as outlined in report DSD -2025-411.
REPORT HIGHLIGHTS:
• The purpose of this report is to provide an update on the uptake of additional dwelling units
(ADUs) following approval of new zoning regulations in 2024 that enabled up to four
residential units on a lot which permits a single detached dwelling, semi-detached dwelling or
street -townhouse dwelling.
• The key finding of this report is that there has been a meaningful increase in the number of
four -unit dwellings since the new regulations were enacted.
• There are no financial implications associated with this recommendation.
• Community engagement included a survey on the Enabling Four Units EngageKitchener page
to obtain feedback from homeowners and developers that have added ADUs to their property
and residents living in neighbourhoods where additional units have been added. Staff
received 288 responses to the survey.
• This report supports the delivery of core services
EXECUTIVE SUMMARY:
In 2024, the City of Kitchener implemented Official Plan policies and Zoning By-law regulations
allowing up to four dwelling units on lots which permit single detached, semi-detached, or street
townhouse dwellings. This initiative has significantly expanded the potential for additional dwelling
units (ADUs) within neighborhoods. Building permit data indicates an increase in the number of
triplexes and fourplexes since enactment of zoning regulations and a reduction in the number of
overall projects requiring minor variances.
Efforts to promote ADU development have included broad-based public outreach and the
introduction of resources such as the "Guide to Additional Dwelling Units", a user-friendly guide
available on the City's website to assist homeowners and developers seeking to add ADUs to their
properties. Staff recommend several next steps to improve community understanding of ADUs and
what is permitted, to support homeowners and builders in navigating the approvals and permitting
process, and to promote the CMHC Housing Design Catalogue by becoming a Local Partner.
*** This information is available in accessible formats upon request. ***
Please call 519-741-2345 or TTY 1-866-969-9994 for assistance.
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BACKGROUND:
The City's Strategic Plan, Official Plan, and Housing for All Strategy recognize the importance of
using a broad range of tools to advance critical housing objectives, and the City of Kitchener has
been a leader in permitting ADUs on residential lots. Since the mid-1990s, Kitchener has
permitted two dwelling units (i.e., duplexes) on most residentially zoned properties. Since 2021,
three dwelling units (triplexes) and backyard homes have been permitted on many lots.
The Enabling Four Units project is one of many supported by Council since their endorsement of
Kitchener's Housing Pledge in March 2023. The Housing Pledge includes strategies and actions
to support the building of 35,000 more homes by 2031. Enabling Four Units further implements
and aligns with recommendations of the Enabling Missing Middle and Affordable Housing
Feasibility Study (April 2023) and is a key action of the City's Housing Accelerator Fund application
supporting the City in achieving housing commitments.
In March of 2024, Council Approved Official Plan and Zoning By-law Amendments to permit up to
four dwelling units on lots which permit single detached dwellings, semi-detached dwellings and
street -townhouse dwellings. The Council resolution directed staff to:
"... provide data regarding the number of four -unit dwellings, including discrete Additional Dwelling
Units constructed following approval of the Proposed By-law attached to Development Services
Department report DSD -2024-066, and report back to the Planning and Strategic Initiatives
Committee by the Fall of 2025 with additional recommendations, or to provide for information if no
additional recommendations are proposed."
Permitting four units as -of -right was a requirement to receive Housing Accelerator Funding.
REPORT:
Additional Dwelling Units (ADUs) include any dwelling units added to a property with a single
detached dwelling, a semi-detached dwelling unit or a street -townhouse dwelling unit as the
principal use. ADUs may be attached or detached, and up to three may be permitted on a lot
together with the principal dwelling, resulting in buildings commonly referred to as a duplex, triplex,
fourplex, or a backyard home (which may have one or two units), or a combination of such
buildings.
The key zoning changes in March 2024 included:
• Permitting a fourth dwelling unit on many residential lots
• Reducing parking requirements for ADUs
• Reducing minimum lot width requirments for ADUs
• Increasing the height and the number of units permitted in a backyard home
• Further regulating built form and site layout only to the degree necessary for safety and
functionality
The purpose of the Enabling Four Units project was to permit gentle intensification in existing
neighbourhoods to increase the housing supply and housing choice. In determining the success of
the new regulations staff considered and are reporting on the following:
1. The number of building permits issued for ADUs by dwelling type
2. How many ADUs are on lots which would not have previously been eligible
3. How many developments have required minor variances to zoning
4. Feedback from the general public and homeowners/builders constructing ADUs
5. Feedback from the Affordable Housing Community Improvement Plan Builder Workshop
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Each of these measures is further discussed in the sections below along with any additional
recommendations.
Number of Building Permits Issued
Staff have reviewed the number of building permits issued for ADUs from 2019 — June 2025 (see
Table 1).
Table 1. Building permits issued for Additional Dwelling Units in Kitchener, 2019-2025
Year
Duplex
(1 ADU attached)
Triplex
(2 ADUs attached)
Fourplex
(4 ADUs attached)
Backyard Home
(1 — 2 ADUs
detached)
2019
201 (211 units)*
3 (6 units)
1 (1 unit)**
-
2020
276 (285 units)
6 (9 units)
-
-
2021
368 (381 units)
9 (10 units)
1 (1 unit)**
4 (4 units)
2022
517 (542 units)
10 (11 units)
-
14 (14 units)
2023
646 (670 units)
20 (29 units)
3 (6 units)
27 (27 units)
2024
569 (595 units)
28 (40 units)
14 (36 units)
21 (22 units)
2025 (Jan-
Jun)
235 (245 units)
17 (26 units)
8 (24 units)
15 (18 units)
* a building permit can include several units. The number in brackets indicates the number of units created.
** built as a multiple dwelling rather than a single with ADUs
From January 2024 — June 2025 there have been 22 permits issued for fourplexes, resulting in 60
new units. There are also several examples of other configurations of four units on a lot, with a
`double -double' (2 units in a principal dwelling and 2 units in a back yard home) being a common
approach. A photo inventory showing examples of completed or under construction four -unit
configurations is provided in Attachment A — Newly Created Four Unit Dwellings and Two Unit
Backyard Homes.
Building Permit data shows that triplexes saw significant uptake in 2023 following enactment of Bill
23, which amended the Planning Act to permit up to 3 dwelling units on Parcels of Urban
Residential Lands across the province. Data shows that 2023 also had a record number of building
permits issued for duplexes and backyard homes. While fewer duplexes and backyard homes
were added in 2024 than in 2023, the number of permits exceeds those issued in 2022 and is
positive given the current economic climate and the slower pace of construction experienced in
other types of residential construction such as detached homes and condominiums. Construction
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of triplexes and fourplexes continued to increase steadily in 2024 and 2025 following the City's
approval of the new 4 -unit regulations.
Staff also explored where in the city ADUs were most frequently added comparing distribution from
2019 to 2023 with 2024 to 2025 (see Attachment B - Kitchener Additional Dwelling Units Permits
Issued — Map A and Map B). It is interesting to observe that in the 2019-2023 period triplexes,
fourplexes and back yard homes were primarily built in the Central City (generally Wards 9, 10 and
the Vanier neighbourhood of Ward 3), whereas in 2024 to 2025 ADUs were frequently constructed
in Established Neighbourhoods including in residential areas developed from about 1950 to 1980
in Wards 1, 2, 6, 7 and 8. Established neighbourhoods are often characterised with large lots and
older more modestly sized housing stock, which lend themselves to redevelopment and
intensification. Duplexes continue to be added in most residential neighbourhoods, with a notable
concentration in new subdivisions, demonstrating high likelihood of duplexes being added shortly
after construction of the principal dwelling.
The new regulations increased the number of lots eligible for triplexes, fourplexes and backyard
homes by about 45% from 28,575 lots to 41,451 lots, by reducing minimum lot width from 13.1
metres (or zone minimum if greater than 13.1 metres) to 10.5 metres (or the zone minimum if
greater than 10.5 metres) in suburban areas, and simply relying on the zone minimum in the
central city. Following the new zoning regulations being enacted, approximately 42% of all lots with
triplexes, fourplexes or backyard homes are on lots with widths less than 13.1 metres (Table 2).
Table 2: Building Permits issued for ADUs on lots with widths less/greater than 13.1 m
To date, staff believe that most ADUs operate as rental units or may support family living
arrangements. The City has not received any applications that would provide for ownership of an
ADU such as a Plan of Condominium, however, there has been some interest from builders in
exploring this in the future. Staff is not aware of any other alternative approaches to standard
rental tenure such as co-operative housing or co -housing being pursued. Alternative tenures (such
as owning shares in a building's corporation or owning a percentage of a property's title) remain an
option and staff recommend that property owners seek independent legal advice to explore these
further. Staff continues to be open to exploring other development approaches such as cottage
courts (several small homes on a lot sharing a private road and other amenities) or land lease
developments with interested applicants. These approaches may require additional Planning Act
approvals (such as a Vacant Land or Common Elements Condominium) and may require special
zoning consideration.
Supporting the Application and Approvals Process
Streamlining approvals. In addition to enabling additional units, the Enabling Four Units project
also sought to streamline approvals processes. To achieve this, staff completed a LEAN review of
Planning and Building application, review and inspection processes associated with additional
dwelling units. This review led to refinement and enhancements of the Zoning (Occupancy)
Certificate and Building Permit processes.
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Lot width less
than 13.1 m
Lot width more
than 13.1 m
Total Building Permits
Backyard Homes
11 (31%)
25(69%)
36
Triplexes
24(53%)
21(47%)
45
Fourplexes
8(36%)
14(64%)
22
43(42%)
60(58%)
103
To date, staff believe that most ADUs operate as rental units or may support family living
arrangements. The City has not received any applications that would provide for ownership of an
ADU such as a Plan of Condominium, however, there has been some interest from builders in
exploring this in the future. Staff is not aware of any other alternative approaches to standard
rental tenure such as co-operative housing or co -housing being pursued. Alternative tenures (such
as owning shares in a building's corporation or owning a percentage of a property's title) remain an
option and staff recommend that property owners seek independent legal advice to explore these
further. Staff continues to be open to exploring other development approaches such as cottage
courts (several small homes on a lot sharing a private road and other amenities) or land lease
developments with interested applicants. These approaches may require additional Planning Act
approvals (such as a Vacant Land or Common Elements Condominium) and may require special
zoning consideration.
Supporting the Application and Approvals Process
Streamlining approvals. In addition to enabling additional units, the Enabling Four Units project
also sought to streamline approvals processes. To achieve this, staff completed a LEAN review of
Planning and Building application, review and inspection processes associated with additional
dwelling units. This review led to refinement and enhancements of the Zoning (Occupancy)
Certificate and Building Permit processes.
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Awareness and education campaign. The Official Plan Policies and Zoning By-laws came into
full force and effect in June 2024, and to promote uptake staff undertook a robust educational and
outreach campaign in September 2024 which included:
• Launch of the "Guide to Additional Dwelling Units" (Image 1) and updates to the website
• Webinars and presentations to public, real estate professionals, and development industry
at the Annual Building Industry Workshop (November 2024)
• Social media campaign
• In person outreach at Kitchener Market including pop-up consultations for those seeking to
add ADUs (Image 2)
• An Outdoor Projects Outreach series March to May 2025 to proactively provide information
to residents interested in common outdoor construction projects including those related to
adding ADUs. This included a second social media campaign, a booth the Home and
Garden Show and 2 outreach events at the Kitchener Market.
Image 1: Guide to Additional
Dwelling Units
Image 2: Enabling Four Units Consultation at the Kitchener
Market
Reducing the need for Minor Variances. The updated regulations also sought to reduce
additional processes such as minor variance applications by increasing zoning flexibility and
focussing regulations to those required to provide a safe and functional development, and to
ensure new developments align with characteristics of communities. Staff have examined and
compared applications for minor variances requested for proposals adding ADUs of all types, from
July 1, 2023 to June 30, 2024 and from July 1, 2024 to June 30, 2025. This encompasses one full
year of the new zoning and compares it to the year prior. Backyard homes and up to three units
on a lot were permitted during both timeframes which allows us to consider the effectiveness of the
updated regulations.
The total number of minor variance applications for projects proposing ADUs was reduced from 35
applications from July 2023 — June 2024 to 26 applications from July 2024 — June 2025 (a minor
variance application may include requests for relief from several regulations). The most frequently
requested variances in 2023 to 2024 (prior to the new zoning) were for reduced lot width, reduced
setback to parking, reduced number of required parking spaces and reduced lot area. These are
shown in the Table 3 below and compare the frequency in 2023 — 2024 to 2024 — 2025. Overall,
amendments to these most frequently requested variances resulted in 46 fewer variances
requested (87% reduction).
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Table 3. Most frequent Minor Variances requested for proposals that included ADU(s)
Most frequent Variances
July 2023 —
June 2024
July 2024 —
June 2025
% change
Reduction to lot width
20
5
75% reduction
Reduced setback to parking
space
18
0
100% reduction
Reduced number of required
parking spaces
9
2
78% reduction
Reduced lot area*
6
0
100% reduction
Total
53
7
87% reduction
*Regulation was removed entirely through Bill 23
Requests for minor variances for other regulations have not experienced substantial changes.
This is appropriate and expected. The purpose of the Minor Variance process is to allow
consideration of zoning variances on a case-by-case basis. Like for all development, lots with
ADUs may have unique site conditions or circumstances that result in proposed development not
being able to comply with regulations. Variances will continue to be required for some proposals.
Staff suggest that the zoning changes in 2024 have made a meaningful difference and have
reduced the number of variances routinely being requested, and which were commonly supported,
to reduce the barriers to adding ADUs.
Two areas where the City continues to experience requests for variances include the required 1.1
metre unobstructed walkway and maximum driveway widths. Regulations in these areas were also
identified by developers who responded to the Enabling Four Units Follow -Up Survey. Additional
comments and information are provided in the following section of this report.
Enabling Four Units Follow -Up Survey: What We Heard
In order to learn about perceptions and experiences building ADUs and living in neighbourhoods
where ADUs have been added staff launched a public survey through Engage Kitchener in July
2025. The survey was promoted to webpage subscribers and through the City's social media
channels and was open from July 14 to August 4. 2025. Staff received a total of 288 responses
from homeowners and developers who have recently constructed or are planning to build ADUs of
all types, and residents who had perspectives to share about ADUs. Key takeaways and staff
responses to common themes are provided below.
WHAT WE HEARD
0�. A survey for homeowner and builders constructing ADUs and residents was
', ' available on Engage Kitchener July 14 to August 4, 2025.
�288 responses were received:
• 38 Homeowners or Builders adding ADUs
• 250 residents providing general feedback
�e�,,,,,,��� A City -led Builder Workshop was held August 27, 2025 focusing on the
�J� proposed Affordable Housing Community Improvement Plan and incentives for
��"� ADUs discussing the financial challenges to building ADUs.
Page 276 of 295
What We Heard from Property Owners and Developers Building ADUs
Staff received responses from 38 respondents identifying as homeowners or builders who have
built or are planning to build ADUs. The majority of respondents indicated that comments provided
relate to construction of a backyard home or a fourplex. From the follow-up survey staff learned
that these types of dwellings of are often built and operated as investment properties with about
half of proponents becoming first time landlords. These developments require acquisition of
property and in many cases either demolition and rebuild, or a substantial renovation with possible
additions. Developers comment that the process is complex, requires substantial financial
investment, and often takes more time than expected to develop plans and building designs, obtain
approvals and permits, and complete construction. Most projects require a Zoning Certificate and
Building Permit, while about 1/3 of respondents indicated that the project would also require
another approval such as a curb -cub permit or a minor variance/consent(severance) from the
Committee of Adjustment.
Themes
Staff Comments and Next Steps
The application and
Staff acknowledge that infill development on existing lots can be complex,
approval process is
and careful consideration must be given when acquiring lands, evaluating
more complex than
site constraints, and designing dwellings that will fit on various sized lots.
anticipated, and
This includes not only the size and design of the building, but also
revising plans to
ensuring space for walkways, parking, landscaping, and servicing. Staff
comply with
acknowledge that in some instances applicants are required to revise and
regulations can be
resubmit site plans, obtain minor variances and/or revise building permit
time consuming and
drawings in order to achieve compliance with regulations and code, which
delays costly.
may add time and cost to projects.
In an effort to help builders and homeowners understand the processes
and zoning rules, a Guide to Additional Dwelling Units was launched in
2024. This guide includes an overview of processes, zoning regulations,
illustrative examples, and contact information.
Staff is also available to meet with applicants in advance of finalizing plans
and submitting applications to review and provide early feedback on the
proposal. Early consultation will also provide an opportunity to review
processes, required applications and ensure that applicants are aware of
expected costs and fees and timelines for review.
As part of the City's ongoing digital transformation projects, the Zoning
(Occupancy) Certificate will be added to the City's application web -portal
which is already used for Building Permits and Business Licenses. This
provides for a streamlined service -window for applicants to submit an
application, make payments, receive approvals and schedule inspections.
This improvement is currently scheduled for 2026.
Next Steps:
• Promote the `Guide to Additional Dwelling Units' and update
as needed to help support applicants through the design and
approvals process
• Develop a `pre -submission' process for Planning and Building
staff to provide early feedback on ADU projects
• Add the Zoning (Occupancy) Certificate applications to the
public portal
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The Zoning
Developers of ADUs have also inquired whether certain process steps
Certificate adds
such as Zoning (Occupancy) Certificates (ZCs) can be eliminated to
unnecessary
reduce review timelines. Zoning must be reviewed for each ADU
process steps.
proposal, and ZCs are a tool that verifies that a proposal will comply with
zoning by-law regulations. A ZC is issued prior to issuance of the building
permit and is applicable law. In the absence of Site Plan Control for
developments with 10 dwelling units or less, the ZC is the most effective
tool for planning to confirm zoning compliance and is required by the
Zoning By-law and enabled by the Planning Act.
Applicants are encouraged to apply for a ZC prior to submitting a building
permit application to ensure that the proposal will comply to avoid delays
through the building permit review. In the absence of a ZC a zoning
compliance review would occur as part of the Building Permit review
process, and review processes and fee structures would need to be
amended to accommodate changes. Staff is concerned that when the
zoning review occurs following submission of fully developed building
permit drawings, this change may cause further delays and costs to
applicants as proposals found not to comply with zoning would need to be
redesigned and resubmitted.
Staff do not recommend eliminating the requirement for a Zoning
(Occupancy) Certificate.
Zoning regulations Those developing ADUs have also commented that zoning regulations are
are a barrier barrier to development. Zoning regulations apply to all development on all
lots and ensure that buildings, driveways, etc., are designed in such a way
that they will be functional and safe for residents and neighbours.
Minimum setbacks ensure space between buildings and property lines for
natural light, landscaping, access between buildings and to wall/roofs for
maintenance, and ensure buildings do not obstruct visibility for vehicles
exiting driveways to see oncoming traffic and pedestrians. Parking and
driveway regulations balance parking desires of residents/tenants with
public space in boulevards for snow storage, street trees, on -street
parking, and utilities. Some additional rules were created for attached and
detached ADUs, as these typically represent intensification of a lot. The
regulations work to protect space between buildings, preserve landscape
and amenity spaces, and provide basic regulations for parking lots to
reduce nuisance and impacts on neighbours, while ensuring safety and
functionality such as requiring minimum drive aisle widths for
maneuverability.
Two areas in particular were highlighted as being challenging to
proponents as outlined and described below. In both cases staff is of the
opinion that the regulations should not be changed as they are important
to safe and functional sites, streets and neighbourhoods.
1.1 m unobstructed walkway: The purpose of an unobstructed walkway is
to provide a well-defined and passable route to the main entrance to each
unit. This is particularly important when entrances are not on a street
facing fapade. Emergency services require this route to accommodate a
stretcher and emergency personnel with apparatus. This walkway also
provides a clear route for tenants and their visitors to find and access the
unit. The walkway requirement is not unique to Kitchener and is a
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standard requirement for ADUs in municipalities across the province.
Requests for reduced widths or that introduce walkway encumbrances
such as driveway crossings or parking space encroachments require a
minor variance to ensure that Fire is satisfied that the situation remains
safe, and the approval may be subject to conditions.
Parking and maximum driveway width: While the City has reduced the
parking requirements for ADUs, it is common for property owners to
propose more than the minimum number of parking spaces. This is
sometimes accompanied by a request that driveways be wider than what
is permitted by the by-law. Driveway widths have been carefully calibrated
in the zoning by-law based on minimum lot sizes and seek to ensure that
there is sufficient space in front yards for landscaping, walkways and
infiltration, and in boulevards for municipal infrastructure such as street
trees, hydrants, hydro poles and transformers, as well as space for on -
street parking between driveway aprons. Widened driveways reduce
opportunities for infiltration of storm water, directing more to storm sewers
than they were designed for and increase hard surface areas which
contributes to the urban heat island effect. There may be circumstances
where proposals for variances to for driveway widenings can be
considered on a case-by-case basis.
The Enabling Four Units zoning was designed to permit most lots to meet
the minimum parking requirements without requiring special consideration.
Parking beyond the minimum requirement may be provided in accordance
with driveway and parking lot regulations. Illegal parking and driveway
widenings are enforced through by-law enforcement.
Staff do not recommend that zoning regulations be amended at this time
and rather that minor zoning by-law refinements continue to be considered
as part of the Annual Zoning By-law Update. The Annual Zoning By-law
review provides an opportunity for refinements, clarifications, and minor
adjustments to regulations and definitions as they arise.
Respondents did
Costs associated with developing ADUs were one of the biggest
not anticipate costs
concerns identified by survey respondents and at the Builder Workshop.
associated with
Development charges (DCs) are frequently cited as a barrier to
constructing ADUs.
homeowners and small developers, with some mentioning that DCs can
represent more than 10% of a project's costs, and with some projects not
proceeding as a result. Staff note that some DCs are exempted for
second and third units, however full DCs are required for the fourth unit.
This can result in an increased upfront cost to the developer or
homeowner.
Payments to compensate for the removal of street trees was also
mentioned. Street trees and other trees in public ownership provide many
benefits to a community. Through the approvals process, all efforts are
made by review staff to protect and preserve street trees including
solutions such as moving driveways, narrowing driveway aprons, etc.
However, in certain circumstances removal of a tree cannot be avoided
and in such circumstances the developer is required to provide
compensation payments for the tree that is removed.
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Servicing costs were also identified as an unexpected cost. Adding
dwelling units to properties may require new service connections or
improvements to existing services to increase capacity. These costs are
the responsibility of the proponent and are required as part of the
construction process.
Some applicants have indicated that construction costs are also higher
for purpose-built triplexes and fourplexes as the Building Code requires
non-combustible construction materials which are more expensive than
materials typically used for single or semi-detached houses. This is
mitigated by some developers through staging the construction, whereby
they build a duplex first, and then renovate the duplex to add a third
and/or fourth unit. This approach adds time and complexity to the
development as permits and construction are staged. Staff recommends
that if a developer plans to stage a development that they confirm that the
ultimate development will comply with zoning and other regulations to
ensure future compliance.
Next Step:
Staff is currently preparing and evaluating options for an Affordable
Housing Community Improvement Plan which will include
consideration of financial incentives for ADUs such as grants to
assist with Development Charges. A report will be provided later in
2025 on this matter.
Repeatable designs
The City of Kitchener is recognized as a Local Partner with the Canada
and pre-reviewed
Mortgage and Housing Corporation (CMHC) promoting all 7 of their design
plans will assist
plans. These include options for backyard homes, duplexed singles,
with streamlining
semi's and townhouses, and fourplexes. A six-plex is also available,
approvals
however not part of the Enabling Four Units regulations. These options
processes
are suitable for use on many lots in Kitchener. While each design will
require a zoning compliance review and a site-specific foundation,
servicing and grading plans, the designs are pre-reviewed by Building and
Planning staff. Homeowners and developers who are interested in
building using a CMHC design are encouraged to reach out to Planning
and Building staff for more information.
Builders interested in pursuing other high-frequency repeated designs
should contact the Building Division for more information about Certified
Plans.
Next Step:
The City supports the use of the CMHC Housing Catalogue to help
homeowners and builders advance building plan preparation and
approvals that will be quicker and with reduced costs compared to
starting from scratch.
Becoming a
About 1/3 of respondents indicated that they were becoming a landlord for
Landlord
the first time. Some indicated that additional support and resources would
be helpful. The City has previously committed to creating and promoting
educational tools for landlords and establishing a Landlord Tenant Forum
through Housing for All 2.0.
Next Step:
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As previously committed, that through Housing for All 2.0
educational tools be developed to support landlords and that the
City establish a Landlord Tenant Forum.
What We Heard from Residents
Staff received responses from about 250 members of the general public. About 60% of
respondents live near an ADU, and 20% of respondents know someone who lives in an ADU. The
majority of respondents provided comments that are specific to detached ADUs (backyard homes)
or to both attached and detached ADUs.
Residents indicated that they appreciate how ADUs provide more housing options, support
affordability or generate income, allow families to live close together while making good use of
existing land, and allow residents to age in place. Some respondents liked certain aspects of ADUs
but also mentioned areas of concern.
The majority of residents responding to the online survey expressed one or more concerns with
ADUs. The survey did not collect personal or other identifying information that would allow a
detailed geographical analysis; however, based on comments, many responses were directed
specifically to one detached ADU in a newer suburban neighbourhood. In this instance, residents
were surprised and concerned with the size of the detached ADU. Residents identifying
themselves as living in this neighbourhood expressed concerns about ADUs being rented as short-
term rentals and/or lodging houses, and expressed concerns about student rentals, and associated
concerns such as noise and nuisance, property maintenance, illegal parking, etc.
Many also commented that ADUs contribute to perceptions of overcrowding in some new
suburban areas, with impacts to the availability of on -street parking, illegally widened driveways,
absentee landlords and associated concerns of neglected property maintenance (snow removal,
lawn mowing/landscaping, garbage and recycling storage). Residents also expressed concerns
with increased noise and nuisance both during construction and because of increased population
density.
Respondents indicating that they lived in older neighbourhoods commonly cited concerns about
changes to community characteristics that they value such as introduction of new architectural
styles and increases to the size and density of dwellings (e.g. up to 4 households rather than just
one household on a lot).
Other general themes include:
• perceived loss of privacy both in relation to outdoor private amenity areas and inside
dwellings, due to new building being constructed near property lines.
• increased demand on on-site and on -street parking
• impact on property values
• property maintenance concerns.
Concerns by theme
Comments
Overcrowding
Many survey respondents expressed concerns that ADUs were leading to
overcrowding in neighbourhoods. ADUs are a gentle form of intensification
that seeks to introduce residential units into existing neighbourhoods where
there are already schools, services, parks, etc. Concerns were raised that
permitting ADUs and more households in existing neighbourhoods causes
overcrowding with impacts such as a loss of privacy and green space,
increased noise and nuisance, and increased demand on on -street parking.
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Through the Enabling Four Units project staff carefully balanced regulations
that permit an increase in density with regulations that provide for compatible
built form. Zoning regulations such as lot width, work together with required
setbacks, maximum building height, minimum landscape and amenity areas
and driveway widths, to ensure that sites are functional and safe. The
minimum lot size will allow a homeowner to legally provide the minimum
required number of parking spaces, and to meet setback, coverage and other
regulations. However, the size of the buildings and placement on the site
must be carefully considered to comply and more modestly sized buildings
may be required on smaller lots. It is also important to note that regulations
may not allow all lots to be developed with up to 4 units, or all configurations
of units. Some lots are not large enough for a backyard home, and others
may not be suitable for a fourplex with more than the minimum number of
parking spaces. Staff note that since the by-law was approved, Planning Act
changes prevent a by-law from regulating lot area, floor space ratio for
ADUs, or requiring more than 4 metres separation between a backyard home
and principal dwelling, therefore, regulations rely on lot width, building
coverage, maximum driveway sizes and maximum heights to ensure that lots
are not overbuilt.
Demand for parking
Minimum parking requirements for ADUs were established based on where
the lot is located and proximity to frequent transit and good cycling options.
The intention is to allow a homeowner or developer flexibility to provide
dwelling units and not provide more parking than is needed, while allowing
more than the minimum number of parking spaces when they can be legally
accommodated on the site. Current minimum parking rates continue to be
supported by Transportation Services and Planning and must be balanced
with other priorities such as space for street trees, landscaping, on -street
parking etc.
Some developers and homeowners wish to provide more than the minimum
number of parking spaces, and this is permitted if a driveway or parking lot
complies with by-law requirements. It is responsibility of the property owner
or landlord to ensure that they are renting units responsibly and that tenants
understand how much parking is included with the lease. Parking and other
by-law violations are subject to enforcement measures including tickets and
fines.
On -street parking is equally available to all members of the public (owners,
tenants, visitors, etc.). On -street parking regulations are enforceable under
the City of Kitchener Traffic and Parking By-law and the Region of Waterloo
Traffic and Parking By-law and is permitted for up to 3 consecutive hours
during the day unless there is a sign posted that says otherwise. An
overnight parking exemption is required in the winter.
Next steps:
Continue to monitor on-site parking demands.
Concern that ADUs
Attached and detached ADUs, including up to 4 dwelling units, are permitted
are built without
as -of -right by the Zoning By-law. Additional public consultation is not
community
required prior to a building permit being issued for an ADU, unless the
proposal does not comply with zoning. Staff encourage homeowners and
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consultation or
knowledge
builders who are adding ADUs to connect with neighbours prior to starting
construction as a neighbourly courtesy.
Throughout the Enabling Four Units project in 2024 the City engaged with
the public and provided several opportunities for comments and input to be
provided at open houses, through an Engage Page, and via social media,
print media, and public meetings. Following approval of the regulations staff
also promoted the new regulations and permissions to inform the public on
what was permitted and to support uptake.
Next Step:
Continue community outreach in 2026 to promote and support the
creation of ADUs and to build knowledge and understanding of ADUs
within the community, through the City's website and social media
channels, and targeted outreach including in person at events such as
the Home Show, and at community centres or other public venues.
Backyard homes are
Several respondents raised concerns that backyard homes are too large
too large
and overlook private amenity areas of neighbouring properties. ADUs
increase density and introduce new dwelling units on existing lots, which can
result in changes in rear yards.
Backyard homes are subject to zoning regulations for setbacks and
maximum heights. The overall footprint is limited to 80 m2 and a maximum
15% lot coverage, limiting the size of the ADU relative to the size of the lot.
For example, a 315 M2 lot (10.5 m x 30 m) would only permit a 47 m2 (500
ft2) backyard home and the principal dwelling would likely be limited to a
having a footprint of about 124 m2 (1136 ft2). Windows and doors near
property lines are regulated by the Building Code, with fewer openings
permitted the closer the wall is to the property line.
Most backyard homes continue to be one -storey dwellings and are generally
not higher than other permitted accessory structures such as detached
garages. Such units can be effectively screened with fencing and a
neighbour is permitted to erect a 2.4 m (8 ft) fence should they desire, which
would effectively block views should they be a concern. Backyard homes
can be permitted to have a height up to 6.0 m which would permit a second
storey incorporated into a roof, or a raised bungalow, however the required
setback is increased, and this is only permitted on lots where the principal
dwelling exceeds 9.1 m (about 30 ft which typically represents two full
storeys with a peaked roof).
ADUs are changing
Residents raised concerns that ADUs were changing the character of
the character of
neighbourhoods by increasing the number of dwellings with rental tenure,
neighbourhoods
increasing diversity in the size of dwelling units, and introducing new
architectural styles. The City promotes a broad range and mix of dwelling
types and forms of tenure to meet the needs of residents. ADUs provide an
opportunity to increase housing supply by gently increasing density within
existing neighbourhoods and is one of many housing types that are being
added to meet housing demand and unlock housing supply. ADUs are a
low-rise and low-density form of housing which is compatible with other low-
rise housing types including single detached dwellings, semi-detached
dwellings, and townhouse dwellings. Architectural styles change over time in
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What We Heard from City Divisions:
Development of ADUs includes review and approvals from many different areas of the City include
Planning, Building, Foresty, Utilities, Engineering, Transportation, By-law Enforcement and Fire.
Staff solicited internal feedback in researching this report and regularly monitor and discuss
questions and concerns as they arise with respect to regulations and processes relating to ADUs.
These discussions have resulted in adjustments to processes and refinements to regulations and
requirements. For example:
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response to new building technologies, materials and aesthetic preferences.
Neighbourhoods and homes are not static and change and adapt over time
to meet the ever-changing needs of residents.
Concerns that ADUs
ADUs provide additional housing choices for many individuals and
are used for short
households living in the city including families with children, single person
term and student
households, students, couples, and multi -generational families.
rental purposes.
ADUs can be rented on a short or long-term basis. Short term rentals
provide a valuable housing option for visitors to the city, as well as residents
who may need shorter term housing due to work contracts, temporary
displacement from another residence, those who are new to the city and
seeking a permanent address, and many others. Short term rentals are not
regulated within the Zoning By-law framework and Council recently decided
not to license or further regulate short term rentals. Short term rental is a
permitted tenure in all neighbourhoods and dwelling types including ADUs.
Provision of safe and adequate student housing has been a concern of
residents in neighbourhoods near college and university campuses, with
particular focus on the pressure caused by unprecedentedly high levels of
international student enrollment over the past 2-3 years. Recent changes to
immigration policy have significantly decreased the number of international
students living in Kitchener. Staff expect that this will reduce pressure on
rental housing including ADUs, decreasing instances of overcrowding within
individual units.
Impacts to property
A number of respondents commented that they fear ADUs will impact
value
property values. For tax purposes property value is established by the
Municipal Property Assessment Corporation (MPAC) and is dependant on
many factors including the size of the dwelling, number of bedrooms and
bathrooms, etc. The assessed value can differ substantially from market
value which is highly dependent on market conditions and preferences of
purchasers. Property value is not a land use planning consideration.
Property standards,
Several respondents indicated that they have concerns that properties with
maintenance
ADUs were not well maintained (garbage not stored properly, grass not
concerns, and
mown, snow not shoveled, etc.), that vehicles were parking illegally, and that
nuisance
units generate excessive noise. Zoning regulations do not control behaviour,
and such issues can arise from any type of housing. The City has a Property
Standards By-law, Noise By-law and Parking By-law which are enforced by
By-law Enforcement staff. Residents are encouraged to reach out to the City
if they have concerns about bylaw infractions and staff can follow-up with
property owner and tenants who do not comply with regulations.
What We Heard from City Divisions:
Development of ADUs includes review and approvals from many different areas of the City include
Planning, Building, Foresty, Utilities, Engineering, Transportation, By-law Enforcement and Fire.
Staff solicited internal feedback in researching this report and regularly monitor and discuss
questions and concerns as they arise with respect to regulations and processes relating to ADUs.
These discussions have resulted in adjustments to processes and refinements to regulations and
requirements. For example:
Page 284 of 295
• consideration has been given to permit minor encroachments of downspouts and utility
meters into required walkways
• there has been further coordination among teams to ensure consistent approaches to
zoning regulations relative to driveways and walkways
• definitions have been updated to clarify how grade and ground floor are calculated to allow
more livable basement units, without changing maximum height regulations.
• Kitchener Utilities has initiated a review of multi -metering requirements due to the increase
in issues.
Staff will continue to monitor processes and regulations related to ADUs and will make adjustments
and improvements as warranted.
Conclusions
Building permit data indicates an increase in the number of lots with ADUs, including triplexes,
fourplexes, and backyard homes, since enactment of zoning regulations, as well as a reduction in
the number of overall projects requiring minor variances. Overall, staff is of the opinion that ADUs
are a positive and meaningful contributor to the overall housing supply in Kitchener. Staff will
implement the next steps outlined in this report to respond to concerns identified by the public.
Future updates of the number of Building Permits issued for ADUs will be provided as part of the
Annual Housing Monitoring Report.
The following next steps are identified in this report and have been incorporated into existing
workplans:
• Build knowledge and understanding of ADUs within the community, through the City's
website and social media channels, and targeted outreach including in person at events
such as the Home Show, and at community centres or other public venues.
• Monitor on-site parking demands.
• Develop educational tools to support landlords and establish a Landlord Tenant Forum. (as
future actions of Housing for All 2.0).
• Consider financial incentives for ADUs through the Affordable Housing Community
Improvement Plan.
• Support use of the CMHC Housing Design Catalogue.
• Promote the `Guide to Additional Dwelling Units'.
• Develop a `pre -submission' process for Planning and Building staff to provide early
feedback on ADU projects.
• Add the Zoning (Occupancy) Certificate applications to the public portal in 2026.
STRATEGIC PLAN ALIGNMENT:
This report supports the delivery of core services.
FINANCIAL IMPLICATIONS:
Capital Budget — The recommendation has no impact on the Capital Budget.
Operating Budget — The recommendation has no impact on the Operating Budget.
COMMUNITY ENGAGEMENT:
INFORM — This report has been posted to the City's website with the agenda in advance of the
council / committee meeting.
Page 285 of 295
CONSULT — A feedback survey was launched in July 2025 on EngageKitchener to obtain input
from property owners and builders who have constructed additional dwelling units, tenants of
additional dwelling units and residents living in neighbourhood where additional dwelling units have
been added. Staff received 288 responses to the survey which are summarized in the What We
Heard Section of this report. A Builder's Workshop was held August 27, 2025 to obtain input on an
Affordable Housing Community Improvement Plan. Staff gained insight into financial barriers to
ADU development through this workshop.
PREVIOUS REPORTS/AUTHORITIES:
• DSD -2024-066 — Enabling Four Units
APPROVED BY: Justin Readman, General Manager, Development Services
ATTACHMENTS:
Attachment A — Newly Created Four Unit Dwellings and Two Unit Backyard Homes
Attachment B — Kitchener Additional Dwelling Units Permits Issued — Map A and Map B
Page 286 of 295
Attachment A — Newly Created New Four Unit Dwellings and Two Unit Back Yard
Homes
431 Krug Street — fourplex in renovated single detached dwelling
404 Forest Hill Drive — fourplex in renovated single detached dwelling
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Attachment A — Newly Created New Four Unit Dwellings and Two Unit Back Yard
Homes
6 Craig Drive — fourplex in renovated single detached dwelling
1 Horizon Court — fourplex in renovated single detached dwelling
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Attachment A — Newly Created New Four Unit Dwellings and Two Unit Back Yard
Homes
179 Belleview Avenue — purpose built fourplex (side entry townhouse, each with 2 car garage)
191 Belleview Avenue - purpose built fourplex (mirror of 179 Belleview Ave)
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Attachment A — Newly Created New Four Unit Dwellings and Two Unit Back Yard
Homes
60 Arlington Boulevard — purpose built fourplex
5 & 7 South Avenue - Original building permits issued for duplexes and converted to fourplexes.
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Attachment A — Newly Created New Four Unit Dwellings and Two Unit Back Yard
Homes
578 Guelph Street — Building Permits issued for duplex with a backyard home, however design
allows for a future renovation to add a fourth unit in the principal dwelling or a second unit in the
back yard home.
356 Wellington Street North - Duplexed principal dwelling and duplexed backyard home under
construction (4 units total)
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Attachment A — Newly Created New Four Unit Dwellings and Two Unit Back Yard
Homes
303 Stonybrook Drive — Duplexed principal dwelling and duplexed backyard home (4 units total)
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Attachment A — Newly Created New Four Unit Dwellings and Two Unit Back Yard
Homes
2 Pipers Green Court — Duplexed principal dwelling and duplexed backyard home (4 units total)
Page 293 of 295
Attachment B: Kitchener Additional Dwelling Units Permits Issued — Map A and Map B
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Page 294 of 295
Permits Issued
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Map A: Permits Issued 2019 - 2023
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Page 294 of 295
Attachment B: Kitchener Additional Dwelling Units Permits Issued — Map A and Map B
Permilits Issued
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Page 295 of 295