Greenline Homes builds all-electric 1, 2, and 3 unit houses in Chicago’s South Side, and this year they’ve started building single-family houses with a “junior accessory dwelling unit” on the first floor. An accessory dwelling unit, or ADU, can mean a few things, but generally it means a smaller home within a house that has one or more dwelling units. In Chicago, this is most commonly done by adding an apartment in a basement space of a single-family house or a two-flat, and on the ground floor of an older courtyard building during a renovation that moves shared laundry from the ground floor to in-unit.
Over in Woodlawn, however, Greenline Homes has built what appears as a single-family house but has an apartment with one bedroom and one bathroom in the front half of the first floor. It occupies about one quarter of the houses’s overall floor area. In the rear half of the first floor is the primary unit’s kitchen, living and dining room, and a half bathroom. Upstairs, the space belongs all to the primary unit and has three bedrooms and two bathrooms.
Many Greenline Homes have previously been built as two-flats with a lower level full-floor apartment and an upper level duplexed apartment for the owner. The intention is that buyers have an immediate rental income opportunity, or a place for multigenerational living. Think having an adult child living nearby (on-site!) as they transition from college graduation to full time job or having their first child.
The house is for sale, and there are several others like it, so if you’d like a tour contact Wayne Beals. Here are similar ones under construction that will deliver this year:
Further reading: junior ADUs can also be lockoff units, where the smaller unit is connected to the primary unit via stairs or a locked door, but maintains its only exit to the outside.
My prepared remarks spoken to the Chicago City Council’s Committee on Zoning, Landmarks, and Building Standards on May 21, 2025.
Hi, my name is Steven Vance, I’m a 34th ward resident and a member of Abundant Housing Illinois, a group whose members show up to advocate for approving new housing. I wanted to speak today to support the expansion of the city’s ADU pilot program into a permanent and citywide option.
This month is the four year anniversary of the beginning of a three-year ADU pilot program.
A year ago, in June, just after the three year anniversary, the department of housing fulfilled their obligation and presented their findings and recommendations. They recommended to expand it citywide.
Two years ago, a year before the department’s recommendations, newly elected Alderprerson Lawson introduced an ordinance that would do just that. To my recollection, the zoning committee has substantially discussed that ordinance only once.
During the last four years, nearly 400 ADU homes have been permitted by the Department of buildings, and hundreds of those homes have been built. Homeowners and other property owners have been able to build homes for their parents, friends, and as rental units to earn more household income. None of the ADUs are allowed to be used for Airbnb or other short term rentals.
Chicago was recently recognized as a national leader…in rent increases. Allowing more homes, including in the form of accessory dwelling units, is a way to suppress the rate at which rents rise. In some cases, including this year in Austin, Texas, Minneapolis, and Denver, so many new homes were built that rents started falling.
I urge the zoning committee to adopt an ordinance to allow ADUs citywide. Thank you.
Brian and his wife built a coach house in 2023, pursuant to the ADU pilot program, so their newborn child’s grandma could live close to home and help babysit.
Show your support for a version of the proposed ordinance that enables equal access to ADUs in all residential zoning districts and does not have the carve out explained below by emailing your alderperson and asking that they support ADU expansion into every residential zoning district without special use approval (reference ordinance SO2024-0008918, and then sign this Urban Environmentalists Illinois petition). I spoke about this issue with Mike Stephen on Outside The Loop radio on July 27, 2024 (skip to 6 minutes).
It’s possible that the Chicago City Council votes to approve an ADU expansion ordinance that would require about 38 percent of small-scale residential property owners, specifically in RS-1 and RS-2 zoning districts, to obtain a special use from the Zoning Board of Appeals to build an ADU. Special use approval is intended for limited and certain businesses and building types that can have an adverse impact and may require mitigations that are reviewed and approved by the ZBA.
ADUs have not been demonstrated to have adverse impacts and this potential future requirement would impose burdens on a scale above and beyond anything else the Chicago zoning code imposes. A special use is described in the city’s code as having “widely varying land use and operational characteristics [and] require case-by-case review in order to determine whether they will be compatible with surrounding uses and development patterns. Case-by-case review is intended to ensure consideration of the special use’s anticipated land use, site design and operational impacts.”
Yet an ADU is a residential use; its operational characteristics could not be incompatible with other residential uses. This requirement would be extremely unusual and especially burdensome. There is only one other special use approval that a residential property owner would have to seek, which is to allow housing on the ground floor in B1, B3, C1, and C2 zoning districts.
Applying for a special use for a small home presents a major obligation to the property owner, and requires them to perform the following:
Submitting a full building permit application with plans and obtaining a “certificate of zoning denial” before being able to start this process.
Paying a $1,000 application fee to the City of Chicago.
Hiring an expert witness to write a report and provide testimony at the ZBA hearing.
Preparing the finding of fact, a report which (a) describes how the ADU complies with all applicable standards of the Chicago Zoning Ordinance, (b) says that the ADU is in the interest of the public convenience and will not have a significant adverse impact on the general welfare of the neighborhood, (c) explains that the ADU is compatible with the character of the surrounding area in terms of site planning and building scale and project design, (d) states that the ADU is compatible with the character of the surrounding area in terms of operating characteristics, such as hours of operation, outdoor lighting, noise and traffic generation, and (e) outlines that the ADU is designed to promote pedestrian safety and comfort.
Complying with onerous legal notification requirements including determining property owners of record within 250 feet of the subject property, paying for and posting public notice signs and ensuring they remain posted until the public hearing, and mailing notice letters to surrounding property owners within the 250 feet notice radius.
Presenting the project to the Zoning Board of Appeals at an undeterminable time during an 8-12 hour meeting in the middle of a Friday, possibly facing one’s neighbors who are present objecting to the project.
Not to mention, this will gum up staff time and expertise.
Scale of impact
I analyzed the number of small-scale residential-only properties in Chicago that would and would not be subject to the special use approval requirement in RS-1 and RS-2 zoning districts if that version were to pass.
The map below shows where the proposed ADU expansion would set a different standard for homeowners in RS-1 and RS-2 zoning districts than for homeowners in all other zoning districts. It covers large parts of 40 percent of the city’s 77 community areas (read more about my thoughts on this in my letter to the Chicago Sun-Times editor).
The table below shows the results of my analysis: the owners of nearly 171,000 small-scale residential properties in RS-1/2 zoning districts would be required to undergo a costly and difficult process that would likely result in burdens so great that very few families would actually be able to take advantage of having an ADU.
About the analysis
“Small-scale residential” comprises Cook County property classifications that represent detached houses, townhouses and townhouses, two-to-six flats, courtyard buildings, and small multifamily buildings, up to 99,999 s.f. with or without commercial space up to 35 percent of the rentable square feet.
Alongside representatives from CMAP, Community Investment Corporation and Preservation Compact, ULI Chicago, and the Chicago Association of Realtors, I also spoke at a subject matter hearing on June 11, 2024, to the Chicago City Council’s zoning committee about the necessity to expand accessory dwelling units to be allowed citywide.Read more about the proposed ordinance.
Hello, my name is Steven Vance. I am an urban planner and consultant in Chicago. I am also a member of Urban Environmentalists Illinois. I have been studying, promoting, and collaborating around ADUs for six years. I was on ULI Chicago’s task force, have presented to various groups about building an ADU, and created a free directory on ChicagoCityscape.com that lists local architects and companies who can design and build ADUs.
1st Ward Alderperson La Spata comments on the proposed ADU expansion ordinance during the subject matter hearing.
Given that background of some of my ADU work I feel that I understand a lot of how the adoption of ADUs in the last three years has fared and can point out future benefits that the city will gain if the proposed ordinance is adopted. I will highlight some of those future benefits.
Removing the maximum coach house size cap. The proposed ordinance would change the cap on how much floor area a coach house could have. Allowing larger coach houses on larger lots will allow more family-sized units with two or more bedrooms. Additionally, larger coach houses can make them more cost effective to build, because of the high fixed costs in building a coach house of any size. The proposed ordinance could facilitate more family-sized coach houses than are currently being built.
Allowing ground level coach houses through the administrative adjustment for parking. The proposed ordinance would allow property owners to build a coach house at grade, meaning it can be accessible. This would make it easier for families to decide to build a small house for an aging family member, who may very well be the current owner, as well as put a dent in the dearth of accessible housing. A second benefit of this change is that ground level construction is significantly cheaper than building atop a garage.
Allowing all-residential buildings in non-residential zones to participate. The proposed ordinance would allow thousands of residential-only buildings that are in B and C zoning districts to add an ADU. The Institute for Housing Studies at DePaul University found that 25 percent of buildings with 5 or more units fit into this category but are currently ineligible. These are the building sizes that are most capable of adding two or more ADUs. If two or more ADUs are built, half must be rented affordably. Adopting this ordinance means those buildings would be able to add ADUs.
Allowing coach house and conversion units on the same lot can also be cost effective for property owners. Either one would likely require a water service or electric service upgrade so it makes sense to make one upgrade to serve multiple new homes.
I believe that the biggest gains in the city’s ADU policy will come from allowing them citywide, in all residential and mixed-use zoning districts. Citywide expansion makes it simpler for the departments to administer, makes all buildings capable of adding an ADU eligible to add an ADU, makes it easier for homeowners to add an additional home to fit their changing household needs, and lets other property owners add to the city’s housing abundance thereby slowing down rent increases that the city is experiencing.
Note: The plan, as explained in Crain’s and the Chicago Tribune, is to vote on the ordinance at the June 25, 2024, zoning committee meeting, and if approved there the City Council would vote at their July meeting. (City Council does not meet in August.)
A subject matter hearing will be on June 11, 2024, at 10 AM (meeting details).
I wrote this summary of the ADU changes this proposed ordinance (SO2024-0008918, formerly O2023-2075) would implement (with my commentary in parentheses).
Interior of a coach house in Lakeview built in 2023.
It allows ADUs citywide (this is the most important change to speed up adoption)
Expands to B and C1, C2 zoning districts (this is important because there are thousands of residential-only properties that are incorrectly zoned in B and C districts which don’t allow ADUs)
It also allows ground floor commercial conversions but only if 40% of more of the property length is commercial space.
It allows a property owner to have both an interior ADU and a backyard house ADU (currently you can have one or more interior ADUs or a backyard house)
It removes the hard 700 s.f. cap on floor area in backyard houses. (Currently coach house sizes are limited to the lesser of 60% of the rear setback or 700 .s.f)
It allows property owners who want to build a coach house to ask the zoning administrator to waive parking requirements for the principal building. This would allow a property owner to reduce the number of existing parking spaces, allowing a coach house to be built as an accessible unit on the ground level. Ground-level coach houses will also be cheaper to construct!
It would require a special use from the ZBA to establish an ADU in RS-1 and RS-2 zoning districts. These are much less common than the other R zoning districts and 0 ADUs have been permitted in those districts since May 1, 2021.
It allows the property owner OR the city to notify the alder of a proposed ADU permit application.
It eliminates the need for the property owner to notify their two adjacent neighbors.
It doesn’t change the affordability requirements when proposing to build 2 or more interior ADUs.
It eliminates the restrictions in the 3 southern limit areas that limited the number of ADU permits per block per year (this restriction ended up having no effect due to little demand in those areas).
It eliminates the requirement that to build a coach house at a 1-3 unit house it had to be owner occupied (only in the 3 southern pilot areas, again this restriction ended up having no effect due to little demand in those areas).
The changes would take effect 120 days after passage. It’s no guarantee that all of these will remain in the final version!
