How do I build a low to the ground deck on a budget?
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Decks are not cheap. Requires careful planning and at least some DIY skills. If attached to any structure, they require a permit. Here are some sites to get you started!
https://www.lowes.com/projects/porch-deck-and-patio/build-a-deck-design-and-layout/project
https://www.familyhandyman.com/decks/building-a-deck/tips-for-how-to-build-a-deck/
https://www.decks.com/how-to/framing-a-deck
https://www.hometalk.com/search/posts?filter=pallet%20deck
Deck construction is dependent upon local building codes. There are many cheap booklets for deck design. Wood close to ground and under decking should be pressure treated to prevent rot and premature death.
Start with the foundation. Construction of the foundation depends on your climate and soil conditions. Wet soils near a river or with a high water table will require wider concrete footings to prevent sinking. Soils that freeze during winter require deeper footings to prevent frost heave. If you don't have extremes of soil or climate you may be able to simply set your footings even with the soil surface or on the soil surface. Footings can be concrete pads either premade or poured on site. You can also use deck blocks that have grooves for the joists on which the decking is laid. Wood used on decks should be pressure treated against rot and insect infestation, especially when constructed close to the ground. Here is an article showing a typical deck-block construction for a ground level deck. http://www.townofresaca.com/building/17022/building-a-deck-with-deck-blocks/using-concrete-deck-blocks-how-to-build-a-fabulous/
If you intend to step from your house onto the deck, the distance between the floor of your doorway and the top of your deck should not be greater than 7.5 inches. If it is greater you should either raise your deck or build steps down to the deck. Here is an article on building porch steps. https://www.front-porch-ideas-and-more.com/how-to-build-steps.html
Decks only need guardrails if they are taller than 30 inches above ground level, though local code might vary. Minor injury can still occur on low decks if one falls off. Too small a deck could lead to someone falling off.