HomeMy WebLinkAboutItem 2C: Initiation of Code Amendment for Downtown Zoning District
EUGENE CITY COUNCIL
AGENDA ITEM SUMMARY
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Initiation of Code Amendment for Downtown Zoning District
Meeting Date: July 24, 2006
Department: Planning and Development
www.eugene-or.gov
Agenda Item Number: 2C
Staff Contact: Nan Laurence
Contact Telephone Number: 682-5340
ISSUE STATEMENT
An implementation strategy in the Downtown Plan calls for the creation of a single downtown
zone to unify the downtown core and to support downtown development. Initiating a code
amendment is the first step in the implementation of this strategy. Initiation does not approve
any changes to the Land Use Code, but launches the public discussion on how to better support
downtown development and implement related Downtown Plan and Growth Management
Policies.
BACKGROUND
City Council initiation of a code amendment for downtown-related regulations was originally on
the City Council Consent Calendar for July 18,2005. The council removed the item from the
Consent Calendar and requested a work session. At the work session on September 12, 2005, the
council reviewed the four main areas of the existing Land Use Code that the Planning
Commission and the Eugene Redevelopment Advisory Committee (ERAC) identified for
potential changes. Those main areas are:
. C-2 Community Commercial non-residential ground floor requirement;
. C-3 Major Commercial surface parking limitation;
. /TD Transit Oriented Development Overlay; and
. Bike parking requirements.
The council directed staff to begin a public process to solicit public input and further refine the
potential issues for consideration. Staff has worked to obtain that input; a summary is provided
below and in Attachment C.
As noted in the AIS for July 18, 2005, the concept ofa downtown zoning district was first
included in the Downtown Vision, approved by the City Council in November 2000. The vision
included the following Key Next Step to support downtown development:
Create a new zoning district for the downtown that promotes multi-story structures with
mixed uses, and emphasizes street-level activity along the Great Streets. Consider Design
Review. (Page 9)
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The council funded the implementation of six Key Next Steps from the Downtown Vision in
April 2001. The concept of a new zoning district was included in the task of updating the
Downtown Plan. In April 2004, the updated Downtown Plan was adopted by the council. The
plan contained the following implementation strategy:
Create a single zone to unify the downtown core, including the new Federal Courthouse
and riverfront areas. Consider amendments to an existing commercial zone, such as C-2
or C-3, and overlay zones such as /TD, /ND, and the Broadway Overlay Zone. (Page 14)
As part of the implementation of the Downtown Plan, Planning and Development Department
(PDD) staff reviewed downtown zoning regulations with the Planning Commission on May 10,
2004. Based on direction from the Planning Commission, PDD staff met with ERAC members
five times between July 2004 and February 2005. ERAC identified issues within existing zoning
regulations that hindered desired downtown development, as described in the Downtown Plan.
In response to the issues identified, ERAC members recommended a strategy to modify the
existing /TD overlay to serve as a Downtown Overlay District.
On March 1, 2005, staff met again with the Planning Commission to present issues and ideas
highlighted by ERAC. The Planning Commission expressed support for the general direction
identified involving possible code amendments to downtown-related regulations, with the
understanding that further evaluation of these topics was necessary.
Staff presented ERAC and Planning Commission recommendations to the council at a work
session on September 12, 2005. Staff followed through on council direction at that meeting by
presenting a strategy for citizen involvement in the preliminary scoping phase of this project to the
Planning Commission, serving as the Citizen Involvement Committee, on September 26,2005.
This phase, envisioned as the first of a two-phase strategy, was implemented in the fall of 2005
and involved a public information workshop and a web-based power point and survey (see Phase
One below). The second, more extensive phase of citizen involvement will commence after
council initiation of the code amendment (see Phase Two below).
Phase One: Initial Scoping
The purpose of the initial scoping phase was to provide public education on the zoning and
regulatory issues involved and to solicit public comments to gain insight into the key issues and
parameters to help define the extent of the project. Staff relied on two venues: a public
workshop and an interactive website. To publicize these venues, staff sent postcards to all
property owners and residents within downtown and the Transit Overlay District boundaries, and
to organizations on the interested parties list. Staff also called or e-mailed a number of key
stakeholders, including individuals who previously expressed interest in this project.
The public workshop was held on November 30,2005, in the Tykeson Room at the Eugene
Public Library. Planning and Development staff was present to engage participants and discuss
or explain the issues involved. Of the approximately 40 citizens who attended the workshop, 35
attendees filled out surveys to indicate their familiarity with zoning and regulatory issues
downtown and to provide comments on possible changes (see Attachment A). The survey topics
LICMOl2006 Council AgendasIM060724IS0607242C.doc
were based on the initial list of items recommended by ERAC and the Planning Commission, as
noted above.
In addition to the public workshop, staff created a web site and online survey to provide
information and to solicit additional comments. The online survey was modified from the
workshop survey in minor ways, such as the order and wording of the questions, based on
comments received at the public workshop (see Attachment B).
In total, 54 surveys were received, including 19 online surveys. In general, for every question,
the majority of respondents wanted to see changes in the code regulations for downtown rather
than maintain the status quo. Some comments provided very specific suggestions, such as "make
bike parking a public utility." Many comments, however, reflected the complexity of the issues
and the need for knowledge on these issues, such as "I don't have enough expertise to voice an
opinion..." Other comments voiced strong support for a vibrant, densely developed downtown.
There were also many questions on the issue of boundaries relating to various downtown
regulations and comments suggesting that these be clarified and simplified.
Sixteen responses were given to the question of what zoning or code regulations should be
considered other than those listed as examples in the survey. Eight respondents cited green
building or sustainable concepts and four suggested design review.
In summary, the comments indicated community interest, the need for more information, and
strong affirmative support to proceed in re-examining codes and zoning regulations related to
downtown (see Attachment C).
Phase Two: Outreach and Recommendations
Phase Two will occur after the City Council has initiated the code amendment for downtown-related
issues. This phase will include the development of a Citizen Involvement Plan for review and
approval by the Planning Commission and will culminate in public hearings before the Planning
Commission and the City Council. More extensive outreach and public participation will include
property and business owners, potential developers, area residents and other key stakeholders.
Small focus group discussions will be held, in addition to a large scale public workshop. More
information on the projected scope of work for Phase Two, including proposed group composition
and timelines, will be presented to the Planning Commission after the City Council takes action to
initiate the code amendment.
Financial and/or Resource Considerations
No additional financial assistance is requested for this project at this time. Project costs will be
covered through existing departmental work assignments.
Timing
Prompt action is recommended. The momentum for downtown development is growing, and
significant discussion of new projects is underway. Timely action to begin the dialogue on
amending the land use code to include an appropriate overlay zoning district for downtown will
help support and encourage desired downtown development.
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RELATED CITY POLICIES
This project addresses implementation strategies and policies from the Downtown Plan. This
project does not directly address or affect council goals or priorities.
Relevant Growth Management Policies include the following:
Support the existing Eugene Urban Growth Boundary by taking actions to
increase density and use existing vacant land and under-used land within
the boundary more efficiently.
Encourage in-fill, mixed-use, redevelopment, and higher density
development.
Encourage a mix of businesses and residential uses downtown using
incentives and zoning.
The first three Growth Management Policies address the importance of compact development
and density. Policy #2 specifically encourages higher density development within existing
development areas. Policy #3 refers to the role of zoning in the effort to encourage desired
development downtown.
Policy 1
Policy 2
Policy 3
Relevant Downtown Plan polices include the following:
. Downtown development shall support the urban qualities of density, vitality,
livability and diversity to create a downtown, urban environment.
. Stimulate multi-unit housing in the downtown core and on the edges of downtown for
a variety of income levels and ownership opportunities.
. Facilitate dense development in the Courthouse area and other sites between the core
of downtown and the river.
. Reinforce residential use in neighborhoods abutting the downtown commercial core
to help contain commercial activity in downtown and maintain the historic character
and livability of adjacent neighborhoods.
The Downtown Plan policies express the commitment to reinforce downtown Eugene as a strong
regional center and a diverse, dense, economically strong urban center. The first three bulleted
policies listed above specifically encourage the transformation of vacant and underutilized sites
and the development of dense commercial, residential, and cultural activities. The fourth
bulleted policy addresses the need to concentrate dense commercial activities in the downtown
core, rather than to encourage commercial activities to replace existing housing along the edges
of downtown. The strategy of creating a downtown zone or overlay district speaks to this
concern by focusing new or revised regulations for density in the downtown core rather than in
the surrounding neighborhoods.
COUNCIL OPTIONS
The council can choose to initiate the code amendment or decline to initiate the code
amendment. The council can also request additional information before deciding whether or not
to initiate.
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If the council chooses to initiate the code amendment, the amendment will be processed as a
Type V application that requires public hearings before the Planning Commission and the City
Council before action is taken by the council to approve or deny the amendment.
CITY MANAGER'S RECOMMENDATION
The City Manager recommends that the council initiate a code amendment to address downtown-
related zoning and code regulations, beginning with the items listed below:
. C-2 Community Commercial non-residential group floor requirement
. C-3 Major Commercial surface parking limitation
. /TD Transit Oriented Development Overlay
. Bike Parking requirements
. Boundaries for downtown development-related codes and regulations
. Green building concepts
. Design Review
(Note: the last three bullets have been added based on citizen input received as part of the initial
scoping phase.)
SUGGESTED MOTION
Move to initiate a code amendment to address downtown-related zoning and code regulations.
ATTACHMENTS:
A. Blank Survey form from public workshop
B. Blank Survey form from web site
C. Summary of survey responses
FOR MORE INFORMATION
Staff Contact: Nan Laurence
Telephone: 682-5340
Staff E-Mail: nan.laurence@ci.eugene.or.us
LICMOl2006 Council AgendasIM060724IS0607242C.doc
ATTACHMENT A
Survey Form from public workshop on 11/30/05
(j)owntown Zoning ~view
Please give us your thoughts!
Tell us about you:
1. How often have you come downtown in the last month?
2. What brings you downtown:
o Live downtown or work downtown
o Professional appointments (doctor, accountant, etc.)
o Retail, restaurants, music or other entertainment
o Saturday Market or Farmers Market
o Government services
o Other
3. Have you worked on a development project downtown?
Tell us what you think:
4. Should Density (FAR) rules be changed? If so, how?
5. Should non-residential uses be required on the ground floor of all new housing downtown? Why or why not?
6. Should we change the regulations for surface parking? How? -
7. Should we change the requirements for bike parking? How?
8. Should the boundaries in downtown be unified? Why or why not?
9. What other zoning or land use code regulations should we look at as part of the Downtown Zoning Review?
10. Do you own property downtown?
Additional
Comments:
If you want to contact us or receive additional information on this project:
~ Please provide the following information:
Name
Address
Email
~ Check on-line after December 15: http://www.eugene-or.gov
~ Send additional comments to: Nan Laurence
99 W. 10th Avenue
Eugene, OR 97401
(541) 682-5340
nan .Iau rence@ci.euqene.or.us
Any additional comments? Use the back if you need more space!
ATTACHMENT B
Survey Form from website
Downtown Zoning Review Survey:: Survey Form
Page lof2
1. What brings you downtown?
[J Live downtown or work downtown
[J Professional appointments (doctor, accountant, etc.)
[j Retail, restaurants, music or other entertainment
[J Saturday Market or Farmers Market
[J Government services
[J Other
2. If other, please specify:
3. How often have you visited downtown in the past month, other than driving through downtown?
[J 1 - 5 days
[J 6 - 10 days
[] 11 - 15 days
[J 16 or more days
4. Do you own property downtown?
o Yes
o No
5. Have you worked on a development project downtown?
o Yes
o No
6. Please give us your thoughts on the fOllowing questions.
Should the boundaries in downtown be unified?
o Yes
C No
7. Why or why not?
8. Should non-residential uses be required on the ground floor of all new housing downtown?
o Yes
o No
9. Why or why not?
10. Should we change the regulations for surface parking?
o Yes
o No
11. If so, how?
http://www.eugene-or.gov/portal/server.pt/gateway/PTARGS_O _ 2 _ 6783 _231_0_ 43/http;lceppstu...
1/12/2006
Downtown Zoning Review Survey:: Survey Form
12. Should we change the requirements for bike parking?
V Yes
VNo
13. If so, how?
14. Should Density (FAR) rules be changed?
V Yes
VNo
15. If so, how?
16. What other zoning or land use code regulations should we look at as part of the Downtown Zoning
Review?
17. Additional comments:
18. Do you want to receive additional information on this project? (If yes, please provide name and
contact information below. Personal information will only be used for the Downtown Eugene Interested
Parties list, and for no other purposes.)
Ci Yes
VNo
19. Name (Optional)
20. Address (Optional)
21. Email (Optional)
r Submit Survey
http://www.eugene-or.gov/portal/server.pt/gateway/PTARGS_ 0 _2_6783 _231_0_ 43/http;/ceppstu...
Page 2 of2
1/12/2006
ATTACHMENT C
Summary of Survey Responses
(Total responses = 54, includes public workshop and web site)
Note: not all respondents answered every question; some gave more than one answer to a particular
question.
1. How often have you come downtown last month?
15 or more times: 18
6 - 14 times: 11
1 - 5 times: 6
2. What brings you downtown? (Note: most respondents gave more than one answer)
live/work downtown: 27
professional appointments: 11
retail, restaurants, entertainment: 34
government services: 19
Saturday or Farmers Market: 23
other: 11 (such as LTD, friend lives downtown, etc.)
3. Have you worked on a development project downtown?
no: 37
yes: 14
4. Should FAR rules be changed?
no: 4 (comment: regulations seem adequate)
yes: 31 (common comments: need flexibility; need higher density downtown)
5. Should non-residential uses be required on the ground floor of new housing downtown?
no: 24 (common comments: housing on first floor contributes to street activity; flexibility
needed)
yes: 21 (common comments: retail needed - but not everywhere; flexibility needed)
6. Should we change the regulations for surface parking?
no: 11 (common comment: limits are OK)
yes: 25 (common comment: allow flexibility)
(There were many questions about this topic; respondents wanted to know more about existing
regulations. )
7. Should we change the regulations for bike parking?
no: 14 (common comments: standards are reasonable, bike parking is needed)
yes: 26 (common comments: flexibility needed, consider other ways to provide bike parking)
8. Should boundaries in downtown be unified?
no: 6 (comment: decreases flexibility)
yes: 8 (common comments: boundaries don't make sense; need clarity and simplicity)
(There were many questions about this topic; respondents wanted to know more about existing
boundaries)
9. What other regulations should we look at as part of the Downtown Zoning Review?
Comments were varied; most common answers were design review and green building or sustainable
standards.
10. Any additional comments?
Comments were varied, including the need for a better open space network, more focus on Saturday and
Farmers Market, and a need for more information on all of these topics.
11. Do you own property downtown?
no: 29
yes: 9