HomeMy WebLinkAboutAgenda Packet 4-15-19 Work SessionApril 15, 2019, Work Session
EUGENE CITY COUNCIL AGENDA
April 15, 2019
5:30 p.m. CITY COUNCIL WORK SESSION
Harris Hall, 125 East 8th Avenue
Eugene, Oregon 97401
Meeting of April 15, 2019;
Her Honor Mayor Lucy Vinis Presiding
Councilors Betty Taylor, President Emily Semple, Vice President Mike Clark Greg Evans Chris Pryor Claire Syrett Jennifer Yeh Alan Zelenka
5:30 p.m. CITY COUNCIL WORK SESSION
Harris Hall, 125 East 8th Avenue
Eugene, Oregon 97401
1.WORK SESSION: Highway 99/Bethel Urban Renewal District
April 15, 2019, Work Session
For the hearing impaired, an interpreter can be provided with 48 hours' notice prior to the meeting. Spanish-language interpretation will also be provided with 48 hours' notice. To arrange for these services, contact the receptionist at 541-682-5010. City Council meetings are telecast live on Metro Television, Comcast channel 21, and rebroadcast later in the week.El consejo de la Ciudad de Eugene agradece su interés en estos asuntos de la agenda. El lugar de la reunión tiene acceso para sillas de ruedas. Se puede proveer a un intérprete para las personas con discapacidad auditiva si avisa con 48 horas de anticipación. También se puede proveer interpretación para español si avisa con 48 horas de anticipación. Para reservar estos servicios llame al 541-682-5010. Las reuniones del consejo de la ciudad se transmiten en vivo por Metro Television, Canal 21 de Comcast y son retransmitidas durante la semana.
For more information, contact the Council Coordinator at 541-682-5010 or visit us online at www.eugene-or.gov.
April 15, 2019, Work Session – Item 1
EUGENE CITY COUNCIL
AGENDA ITEM SUMMARY
Work Session: Highway 99/Bethel Urban Renewal District Meeting Date: April 15, 2019 Agenda Item Number: 1 Department: Planning and Development Staff Contact: Anne Fifield
www.eugene-or.gov Contact Telephone Number: 541-682-5451
ISSUE STATEMENT Councilor Evans polled for a council work session on a Highway 99/Bethel Urban Renewal District in order to address questions about how the creation of a Tax Increment Financing district could enhance economic and community development in the area. At this council work session, staff will present information on how Urban Renewal districts can be used to achieve economic development goals, the potential for an Urban Renewal district to generate revenue for reinvestment in the area, and the steps to establish an Urban Renewal district. This work session is for informational purposes only.
BACKGROUND The Bethel area is Eugene’s largest neighborhood with over 12,000 households. In 2014, City staff led an effort to identify economic development-related actions in the Bethel neighborhood. The Bethel Economic Development Task Team’s efforts led to the 2015 Building a Better Bethel, a five-year plan that identified actions that the City and others could implement over the subsequent five years (Attachment A). The Task Team found that there has been significant community-building progress within Bethel. The Task Team, however, determined that Bethel is often misperceived as a less desirable area, and that misperception is reinforced by the under-utilization and under-development of property along Highway 99. Additionally, the Task Force found that Bethel is under-served by food businesses, such as restaurants and produce markets. Since the completion of the Building a Better Bethel plan, the City has addressed some of the identified actions. The Planning Division is working to bring the Clear Lake Road area into the Urban Growth Boundary. The Community Development Division is working to retain and grow the food sector industry, primarily by supporting the Food and Beverage Sector Strategist in partnership with Lane Workforce Partnership, Lane County, Eugene Water & Electric Board, the City of Springfield and the private sector. The City has also worked to expand workforce development partnerships, in coordination with Lane Workforce Partnership and Lane ESD. The City has used its Brownfields Assessment grant from the federal Environmental Protection Agency for site predevelopment in the Bethel neighborhood These actions, identified in the Building a
Better Bethel plan, benefit the Bethel area.
April 15, 2019, Work Session – Item 1
How Urban Renewal Works in Oregon In Oregon, ‘Urban Renewal’ is enabled by ORS 457 and used to help cities and counties implement plans to revitalize specified areas within their jurisdiction. An Urban Renewal area has a Plan that documents planned investments and infrastructure improvements—such as parks, streets and parking garages—that stimulate private investment and attract new businesses, jobs and residents. The infrastructure improvements are financed with revenue generated from ‘tax increment financing.’ TIF is a tool to focus funds in a particular area. The investments are made to improve public space and to catalyze further private investment. TIF is the primary funding tool used within URAs. Tax increment revenue is generated within an URA after the property taxes within that area are ‘frozen’ (often called the frozen base). Any new taxes generated within that area through increased assessed value becomes the increment (see Attachment B for a graphic representation). The other taxing jurisdictions in the URA continue to collect property tax income from the frozen base but the URA collects revenue from assessed value above the frozen base. The URA then can issue bonds to pay for identified public improvements and/or investments in private projects that are in the public interest. The tax increment is used to pay debt service on the bonds. A URA Plan lays out the expected cost of infrastructure improvements and expected TIF. When a new URA is formed, the Plan sets the ‘maximum indebtedness,’ which is the total value of debt that a URA can issue. The maximum indebtedness is based on the TIF revenue capacity of the URA and the planned projects to receive TIF funding. When an Urban Renewal area is established, taxing jurisdictions that overlap the URA forgo some of the tax revenue they would otherwise collect from that area. Overlapping jurisdictions regain that revenue stream once the URA expires. To the extent that the URA increases assessed value over what would otherwise have occurred without Urban Renewal investment, the taxing districts should see an increase in tax revenues in the long-term.
What a TIF Can Be Used For To be eligible for tax increment funds, projects must be included in the UR plan. The projects, however, can be broad or specific. For example, a plan can include a streetscape improvement project. The agency may identify a particular size and level of amenity at a particular location, or alternatively it may retain flexibility in the plan and simply allow for that type of project to be built with UR funds in the district. The UR agency must determine the scope and types of projects that are included in the UR plan. Oregon statutes (ORS 457.170) govern the types of projects that may be funded with tax increment funds:
• Plan and implement neighborhood development programs;
• Rehabilitation or conservation work;
• Repair and rehabilitation of buildings and improvements;
• Acquisition, sale, and lease of real property;
• Clearance or rehabilitation of property acquired by the URA;
April 15, 2019, Work Session – Item 1
•Construction or reconstruction of streets, utilities, and site improvements;
•Relocation of individuals living in the URA; and
•Carry out work which a housing authority is authorized to perform (under ORS 456.055 to456.235). Some UR agencies use tax increment funds to pay all or some system development charges, building permit fees, or local improvement district assessments. These costs are part of ‘site improvements,’ which are allowed under state statute.
Steps to Create an Urban Renewal Area A community looking to create an URA should first identify the goals and objectives for the subject neighborhood. Understanding the goals and objectives can help clarify if TIF is an appropriate tool. A preliminary feasibility study can help determine if the defined area can generate adequate tax increment revenue to cover the cost of the investments. If the community determines that TIF is an appropriate tool, it can begin the technical process to create an URA. Some of the key steps include the following:
•Define the need for an Urban Renewal area. Oregon statute requires that an Urban Renewalplan includes reasons for the selection of the geographic area. For a city the size of Eugene, state statute limits the amount of acreage that may be in an Urban Renewal area to less than 15 percent of the whole city and assessed value to less than 15 percent of the whole city.
•Set a boundary from where tax increment will be generated. The geographic boundaryestablishes the ‘frozen base’ for the tax increment revenue.
•Establish the planned projects, estimated costs and the maximum indebtedness.
•Adopt the plan according to process prescribed in ORS 457.Staff have prepared preliminary estimates of assessed value for property along Highway 99 and present the analysis to Council at the work session. Oregon statutes required public involvement at all stages of development of an Urban Renewal plan. It also requires that the Urban Renewal agency ‘consult and confer’ with affected taxing districts. In Bethel, the primary affected taxing districts include the Bethel School District and Lane County. The Urban Renewal agency, however, has final authority to establish a new URA. Creating a new Urban Renewal area is technical and complicated. A jurisdiction should expect the process to take approximately 18 months, substantial staff time and consultants.
Other Tools Urban Renewal and TIF is one of the tools available to local governments in Oregon that can be deployed to improve public infrastructure and encourage private investment in the area. Like any toolbox, some tools are better suited for particular tasks. The City of Eugene currently has the following investment tools available with the potential to apply to the Bethel Area.
Multi-unit property tax exemption is a tool to encourage residential development in a defined neighborhood. MUPTE reduces the operating costs of new multi-unit development, thereby
April 15, 2019, Work Session – Item 1
reducing risk for the developer. It has been an effective tool in downtown Eugene, supporting Broadway Place, High Street Terrace, the Tate and others. The MUPTE boundary does not currently include the Bethel neighborhood.
Enterprise Zones are a tool that aims to stimulate new investments that create jobs. Eligible new investments in the Zone can be exempted from property taxes for a period of three years and potentially up to five years. The West Eugene Enterprise Zone covers a portion of the Bethel neighborhood.
Opportunity Zones are an incentive program resulting from the 2017 Tax Cuts and Jobs Act, enacted by the U.S. Congress. These zones are intended to encourage investments in low-income communities towards real estate development and business through Opportunity Funds. Opportunity Funds encourage investment in them by allowing investors to reduce their tax burden from capital gains. Much of the Bethel neighborhood is in an Opportunity Zone. In addition to incentive programs, the City of Eugene is able to use its taxing authority to fund improvements using local improvement districts, general obligation bonds, and General Fund revenue.
Planning History in Bethel The City has planned for and implemented a variety of efforts focused on the Bethel neighborhood The City of Eugene also has planning documents that identify city-wide goals and policies and planned city-wide infrastructure improvements. Some of these documents include planned infrastructure improvements in the Bethel area. Below is a brief description of Bethel-specific plans. Please see Attachment C for more information and maps that describe the plans that affect the Bethel neighborhood.
PREVIOUS COUNCIL DIRECTION There has been no previous direction from council on this topic.
COUNCIL OPTIONS This work session is for informational purposes only. No action from council is asked for at this time.
CITY MANAGER’S RECOMMENDATION City Manager has no recommendation at this time.
ATTACHMENTS A. Building a Better Bethel B. Visualizing Tax Increment Financing C. Summary of Planning Documents – Bethel Neighborhood
April 15, 2019, Work Session – Item 1
FOR MORE INFORMATION Staff Contact: Anne Fifield Telephone: 541-682-5451 Staff E-Mail: afifield@eugene-or.gov
EUGENE, OREGON
April 15, 2019, Work Session – Item 1
Councilor
Chris Pryor
Ward 8
Welcome to the Bethel Economic Development Task Team
Report-Building a Better Bethel.
Bethel is a great place to live, work, raise a family,
open a business, and enjoy your favorite activities. Our
community boasts excellent schools, vibrant businesses,
inviting open spaces and recreation facilities as well
as engaged and diverse neighborhoods and residents.
We also know there are opportunities to make Bethel
even better - supporting the creation of new jobs and
educational opportunities, building better transportation
connections, easing the path for redevelopment in key
areas, and strengthening business connections.
It is an exciting time for the Bethel area and that’s why it
is an important time for us to take a deeper look at how
we can build on our assets to encourage even greater
vitality in our community. The goal of the Bethel Economic
Development Task Team is to recognize what it will take to
turn our many opportunities into thriving realities.
The Task Team group included community and business
leaders who are passionate about making a difference in the
place where they live, work, play, and call home. We sincerely
appreciate the time and thoughtfulness they provided to
this task. Eugene is a community with a vibrant history and
a promising future, and we believe Building a Better Bethel
provides the critical next steps in realizing that future vision.
The goal isn’t to score a touchdown in one big play - Building
a Better Bethel is about realistic -doable-steps in the right
direction. Steps that build on our successes, develop trust,
and show progress. As we move forward, these actions
will engage community members, inspire new ideas, and
ultimately realize the potential of our community.
We are inviting you to join our team in this work, because it will
take all of us. Identify how you can participate, how you can
assist, how you can lend your hand in Building a Better Bethel.
BUILDING A BETTER BETHEL
Bethel Economic Development Task Team Report
Building a Better Bethel directly
aligns with our city-wide goals
to promote a safe community,
encourage sustainable development
and ensure accessible and thriving
culture and recreation.
Building a Better Bethel also
supports the Pillars of Envision
Eugene, our community vision of
how our city will grow over the next
20 years, and advances our regional
economic prosperity goals.
Envision Eugene Pillars
•Provide Ample Economic
Opportunities for all Community
Members
•Provide Housing Affordable to All
Income Levels
•Protecting and Enhancing
Neighborhoods
www.envisioneugene.org
Regional Prosperity
Economic Development Plan
•Grow Local Opportunities
•Provide Basic Business Needs
•Identify as a Place to Thrive
www.eugene-or.gov/prosperityplan
Councilor
Claire Syrett
Ward 7
Councilor
Greg Evans
Ward 6
2 April 15, 2019, Work Session – Item 1
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PROPOSED URBANGROWTH BOUNDARYEXPANSION
In working with Bethel officials, neighborhood groups, and
local businesses, the City of Eugene has identified ways in
which the City can help pave the way for increased vitality
within the Bethel community.
3April 15, 2019, Work Session – Item 1
Vision
The Bethel Economic Development Task Team (Task Team)
project’s vision is to support Bethel businesses, residents,
and schools in their efforts to create an area that has
‘everything right here’, by identifying economic development
related actions that can build a better Bethel.
Study Area
The project study area encompasses the economic areas which
serve the Bethel Area; the eastern boundary is the Highway
99 Corridor, the southern boundary is the West 11th business
corridor, the western boundary is Green Hill Road, and the
northern boundary includes Clear Lake Road to accommodate
the proposed Urban Growth Boundary (UGB) expansion.
Project Purpose
The purpose of this project was to identify actions that the
City and its partners can implement within the next five
years to build community assets and advance the vision of
‘everything right here’. With the adoption of Envision Eugene
and the Regional Economic Prosperity Plan, as well as the
forthcoming update to the Transportation System Plan,
the opportunity to direct public and private investments to
support this vision is at hand.
As defined, Bethel is an area that will support the growth of
jobs, housing, recreational opportunities, and multi-modal
transit options for West Eugene. The expansion of the UGB
as recommended within Envision Eugene supports the
Regional Prosperity Plan’s strategy of strengthening targeted
industries and growing local opportunities, such as the
food industry, which has been identified as a key industry in
Bethel.
INTRODUCTION
Task Team Timeline
The Task Team met four times
throughout the fall of 2014. Below is
a summary of the meetings.
1 Meeting One-October 8
Introduction to the project and
purpose, role of members as
representatives for community,
overview of Bethel conditions,
discussion of Envision Eugene and
Regional Prosperity Plan, and initial
identification of redevelopment sites.
2 Meeting Two-October 22
Identified criteria for evaluating
redevelopment sites, discussed
assessment process, provided
overview of the Economic
Development Tools available in
area and discussed which ones are
most appropriate to use in Bethel,
overview of the Food Industry
sector, and discussed future needs.
3 Meeting Three-November 19
In-depth review of redevelopment
financial modeling for high
priority sites, land use zoning and
development code discussion
that highlighted recent revisions,
discussed final deliverables and
visual presentation, and completed
a visioning exercise.
4 Meeting Four-December 10
Staff presented draft outlines for
technical report, map, and website
information, discussed language
emphasizing community leadership
in implementing the actions,
reviewed and approved the Action
Items, and discussed next steps
involving the Task Team and City
Council.
Task Team Project
4 April 15, 2019, Work Session – Item 1
Approach
The Bethel Economic Development Task Team was a fast-paced, strategic
effort to bring together key community stakeholders and utilize their
expertise to identify action items that will advance the community vision.
The model utilized for this project is a blend of a ‘Blue Ribbon Task Team’
approach and the development model utilized for Eugene’s successful
downtown redevelopment efforts: Team, Strategy, and Toolbox.
Team
City Councilor Greg Evans, with the support of City of Eugene (COE) and
University of Oregon’s (UO) Community Planning Workshop (CPW) staff,
assembled a Task Team to participate in targeted meetings and discuss
economic development opportunities in the Bethel area. The team consisted
of public and private partners, including: Eugene City Councilors Claire
Syrett and Chris Pryor, Lane County Commissioner Pat Farr, community
members, local businesses leaders, and real estate developers. Through
focused meetings, the Team identified crucial action items for economic
development in Bethel and will act as champions of the Strategy.
Strategy
The Strategy provides the next steps that create the ‘everything right here’
vision for Bethel. The Strategy serves as a short-term (1-5 years) road map
that outlines action items and includes responsible parties, milestones,
and alignment with existing policy. This report serves as the Task Team’s
deliverable to the City Council.
Toolbox
The Toolbox includes all the possible economic development and
redevelopment tools including funding and incentives that can be utilized
to support the Strategy. The toolbox is a crucial component of the project,
as financial assistance is critical to support the variety of desired projects,
businesses, and outcomes. The Toolbox identifies funding, resources, and
incentives to carry out land redevelopment and business development
efforts.
Deliverables
There are three main elements of the Task Team’s work. The first is this
Task Team Report, which serves as the plan for future actions. The second
is the Building a Better Bethel Map, which visually highlights the strengths
and planned investments in the area. The third product is the www.
betterbethel.com website serving as a living asset describing current and
future projects in the Bethel area and providing a number of resources
including:
•Meeting Agendas and Minutes
•Better Bethel Map and Task Team Report
•Redevelopment Site Analysis
•Development Tools Technical Memos
•Links to current planning projects for community involvement
•Links to maps and resource documents
5April 15, 2019, Work Session – Item 1
The Bethel Area is Eugene’s largest neighborhood with over 12,000 households and already
contains many vital elements that contribute to a strong, vibrant community. One of the
primary points that came up within Task Team discussions was the perception of Bethel as
a less desirable area of the Eugene community. Despite the significant community-building
progress that has occurred within Bethel, these successes have not been communicated
outside the Bethel neighborhood, and have done little to combat the misperception.
Additionally, this perception is reinforced by factors such as the underutilization and
underdevelopment of property along Highway 99, an important travel corridor for Eugene
residents travelling through the Bethel area.
The economy, while recovering around the state and region, has been slow to pick-up in the
Bethel area. While the retail-service industry has grown in Eugene overall, the Bethel area
has not seen that same growth, despite housing a significant portion of Eugene residents.
Additionally, despite a growing food sector (restaurants, food businesses, produce markets,
etc) in the Eugene area, Bethel remains in short supply of these new elements.
Despite these challenges, there are a number of opportunities the Task Team identified that
will play a positive role in the coming years. Residents are committed to improving the area’s
vitality and committed to making changes to improve their livelihoods. Bethel School District
is one of the strongest districts in the state, leading the area in graduate rates and test scores.
In 2014, Willamette High School was named a 2014 Green Ribbon School, one of only 52 in the
U.S. The Active Bethel Citizens group strives to make grassroots changes for the community,
and the City of Eugene’s Petersen Barn is an activity hub for residents of all ages. Community
events such as “We are Bethel” demonstrate the strong sense of identity found among Bethel
residents. There are a number of recreation facilities and parks in the Bethel Area, with future
improvements of the Golden Gardens Park and a new west Eugene YMCA proposed for the
area. Engaging this energy is key to making long-term successful changes and improving the
livelihoods of Bethel residents.
TEAM: ADVANCING A VISION
6 April 15, 2019, Work Session – Item 1
BETHEL TASK TEAM
Greg Evans Resident and City Councilor-Ward 6
Claire Syrett Resident and City Councilor-Ward 7
Chris Pryor Resident and City Councilor-Ward 8
Larry Newby Resident and Retired Real Estate Professional
Joanne Gross Resident and Co-chair Active Bethel Citizens
Colt Gill Superintendent, Bethel School District
Sarah Case Development Officer, Lane County
Keith Miller Resident
Scott Bales Resident Business Owner: Royal Refuse and McKenzie Recycling
Debi Farr Resident and Member, Bethel School Board
Pat Farr Resident and Lane County Board of Commissioner-District 4
Corey Dingman, MAI Partner, Duncan and Brown Real Estate Analysts
Dennis Boeger, PE Resident and Owner, Boeger & Associates, LLC
Clayton Walker, CCIM Principle Broker, C.W. Walker and Associates
Alan Turanski Resident Business Owner: President, Glory Bee Foods
Leigh Anne Hogue Director, Economic Development, Eugene Chamber of Commerce
VISIONING
Team members were asked for three words for their vision for Bethel
Fine Dining Transportation Flowers Vibrant Convenient
Partnerships Expanding Activity Opportunities Exciting Clean
Everything Right Here Dynamic Comfortable Manufacturing Real Small Steps
Healthy Food Accessible Connected Incorporated Places to Gather
Celebrate Diversity Community Community Pride Kids on Bikes Equity
Infrastructure Refinement Welcoming Strong Employment
WHAT’S MISSING IN BETHEL?
Based on vision words, Team was asked ‘What is missing in Bethel?’
Basic amenities nearby • Infrastructure refinement • Sense of connection
Building up Bethel residents so all their needs are met in the community
Strong employment base • Activity and recreational opportunities
Natural area destinations • Entertainment • Excitement
7April 15, 2019, Work Session – Item 1
STRATEGY: ACTION PLAN
The Task Team identified 12 key action items as vital to promoting economic development
in the Bethel area. The action items are organized into two time frames; short term tasks for
completion within the next 3 years and medium term tasks for completion within the next 5
years. Icons and color coding indicate whether the action item is a Targeted Public Investment,
such as transportation improvements; or an action that will Support Private Investments, such
as expanding the UGB for increased employment in the area. In recognition of the community-
wide level of involvement needed to complete the tasks, the responsible parties are identified.
Task #Task Lead Party
Short Term (up to 3 years)
1 Develop criteria and process for fast track permitting X X COE Planning and Development Department
2 Enact Zone Changes and Code Amendments X X X X X COE Planning Division, COE Planning Commission
3 Create Bethel Business Alliance X X X X X Clayton Walker, Colt Gill, Chamber of Commerce
4 Review Enterprise Zone Criteria and Expand to match UGB X X X X X COE Community Development Division
5 Expand UGB - Clear Lake Road X X X X X X COE Planning Division, COE Planning Commission
6 Create and implement a Targeted Business Assistance Strategy including 'Gold Zone'X X X X Community Development Division; Include LCOG and LCC
7 Engage in rebranding of Bethel area to align with positive trajectory X X X Councilor Evans, Bethel Business Alliance, Bethel Community
Medium Term (up to 5 years)
8 Create support position to aid in permitting process X X COE Planning and Development Department
9 Complete site predevelopment to attract business expansion, prioritizing key industries X X X COE Community Development Division
10 Expand workforce development partnerships X X X Colt Gill, Brian Kelly (LCC), coordinate with Bethel Business Alliance
11 Expand recreation facilities to increase sports based activities and tourism.X X X Councilor Evans, Sports Commission, Art Farley (Eugene Parks)
12 Help retain and grow the food sector industry in West Eugene X X X X X Lane County Economic Development Program,
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Ease of Entry
Targeted Business Assistance
Bethel Business Alliance
UGB
Task #Task Lead Party
Short Term (up to 3 years)
1Develop criteria and process for fast track permittingX X COE Planning and Development Department
2Enact Zone Changes and Code AmendmentsXX X X X COE Planning Division, COE Planning Commission
3Create Bethel Business Alliance X X X X X Clayton Walker, Colt Gill, Chamber of Commerce
4Review Enterprise Zone Criteria and Expand to match UGBXXX X X COE Community Development Division
5Expand UGB - Clear Lake RoadXXX X X X COE Planning Division, COE Planning Commission
6Create and implement a Targeted Business Assistance Strategy including 'Gold Zone'XX X X Community Development Division; Include LCOG and LCC
7Engage in rebranding of Bethel area to align with positive trajectory X X X Councilor Evans, Bethel Business Alliance, Bethel Community
Medium Term (up to 5 years)
8Create support position to aid in permitting processX X COE Planning and Development Department
9Complete site predevelopment to attract business expansion, prioritizing key industriesXX X COE Community Development Division
10Expand workforce development partnerships X X X Colt Gill, Brian Kelly (LCC), coordinate with Bethel Business Alliance
11Expand recreation facilities to increase sports based activities and tourism.X X X Councilor Evans, Sports Commission, Art Farley (Eugene Parks)
12Help retain and grow the food sector industry in West EugeneXX X X X Lane County Economic Development Program,
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Community Development Division
SUPPORTING PRIVATE INVESTMENTS TARGETED PUBLIC INVESTMENTS
Transportation
Schools and Workforce
Parks and Recreation
Property Redevelopment
9April 15, 2019, Work Session – Item 1
DEVELOP CRITERIA AND PROCESS FOR FAST-TRACK PERMITTING
The City of Eugene to improve the process flow and increase efficiency
within the development permit review process. Currently, this is the
Building and Permit Services priority project entitled the ‘PIC Plan’.
ENACT ZONE CHANGES AND CODE AMENDMENTS
On-going efforts to adjust the land use code for more flexibility within
zoning designations to help with site redevelopment. Recent examples
include the revisions of the I-2, I-3, E-1, and E-2 zones for broader use.
CREATE BETHEL BUSINESS ALLIANCE
Establishment a group of local business leaders who will advocate on
behalf of the Bethel community.
RENEW, REVIEW, AND EXPAND THE ENTERPRISE ZONE.
This is currently within the work program of the City’s Planning and
Development Department, with the Task Team recommendation to
evaluate the eligibility criteria and expand to match the new UGB
boundary.
Near-Term Actions (within next 3 years)
10 April 15, 2019, Work Session – Item 1
EXPAND UGB AT CLEAR LAKE ROAD
The Eugene City Council is in the process of reviewing a proposed
expansion of the Urban Growth Boundary to include 650 more acres
designated for employment use. This expansion has been proposed
to accommodate future employment growth projected by Envision
Eugene.
TARGETED BUSINESS ASSISTANCE STRATEGY
The City’s Community Development Division is creating a targeted
business assistance strategy that includes a variety of business loans
and incentive opportunities to engage Bethel businesses, ideally
collaborating with the Bethel Business Alliance.
REBRAND BETHEL AREA TO ALIGN WITH POSITIVE TRAJECTORY
Shifting the perception of Bethel is key to attracting residents and
businesses to the area. This will include highlighting Bethel as a “great
place to live and to do business,’ by promoting the exceptional schools,
recreation amenities, quality housing, and strong community character.
11April 15, 2019, Work Session – Item 1
CREATE SUPPORT POSITION TO AID IN PERMITTING PROCESS
The City of Eugene is committed to creating a dedicated staff position
to guide businesses through the development permitting process.
COMPLETE SITE PREDEVELOPMENT TO ATTRACT BUSINESS EXPANSION
Development of “shovel-ready” sites to quickly accommodate new
industries and businesses. Predevelopment would focus on preparing
sites for targeted industries outlined within the Regional Prosperity
Plan.
EXPAND REGIONAL WORKFORCE DEVELOPMENT PARTNERSHIPS
The expansion of existing work force development programs with area
educational institutions is critical for a thriving economy that retains
existing businesses as they grow and attracts new businesses. Task
Team members will develop and maintain partnerships to offer training
opportunities aligned with targeted industries.
Medium-Term Actions (3-5 years)
EXPAND REC. FACILITIES TO INCREASE SPORTING ACTIVITIES AND TOURISM
Bethel’s parks and recreation facilities can support community
activities and regional sport tourism boosting local businesses. Future
developments include the Golden Garden’s Master Plan, the west
Eugene YMCA, and the Eugene Parks and Recreation System Plan
Update.
HELP RETAIN AND GROW THE FOOD SECTOR INDUSTRY IN WEST EUGENE
Given the land quality, parcel size, zoning, proximity to major
transportation routes, and existing food industry, the area is
prime for pursuing further development of the food industry.
12 April 15, 2019, Work Session – Item 1
13April 15, 2019, Work Session – Item 1
Redevelopment Site Analysis
A core undertaking of the Task Team was to identify and evaluate
potential sites for redevelopment as part of the larger resource
set. The primary focus for these efforts was identifying parcels
with the greatest redevelopment potential along transportation
corridors, with a secondary focus on areas outside these
corridors but which hold strong real estate opportunities.
The process to identify potential sites included a number of steps. First, during Task Team
Meeting 1, the group identified candidate sites. Second, these sites were plotted by UO
CPW and UO Infographics Lab teams, then run through an initial site assessment to evaluate
the redevelopment suitability for each site. Third, a subgroup of real estate professionals
provided additional sites and comments on the initial candidate sites. Fourth, all of the
sites were overlaid with the existing State of Oregon Brownfields sites to determine where
City Brownfields funding could be utilized. Fifth, the top priority sites were run through a
redevelopment pro-forma tool that was designed by a subgroup of the Envision Eugene
Technical Resource Group, which included public and private members representing policy,
real estate, development, and land conservation.
The outcome of this process was presented to the Task Team at Meeting 3, where candidate
sites market redevelopment potential were evaluated. In every instance, the type of project
that is currently financially feasible was single-story retail/commercial developments. All
other types of project (mixed use, housing, non-strip retail, etc) require large amounts
public financial assistance to be financially viable.
Scenarios were run utilizing the impacts of MUPTE: Multiple Unit Property Tax Exemption
(lower operating costs), City of Eugene Affordable Housing programs (lower capital
requirements), and potential market improvements (increased cash flow) showing that
depending on the site and type of development at least one or all of these incentives or
conditions would be required for a successful project.
Due to the sensitivity of assessing non-vacant sites for redevelopment, there were only
a handful of these sites included in the initial assessment. The Task Team noted this and
recommended re-examining this as there may be reasons, such as existing brownfields,
impacting the marketability of vacant sites. All scenarios and maps can be found on the
project website.
TOOLBOX
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14 April 15, 2019, Work Session – Item 1
Development Tools
The Task Team evaluated the variety of existing policy and financial tools that are available
for business development and property redevelopment activities in west Eugene. These
include incentives, grants, and loans from the City of Eugene, Lane County, or through
the Lane Council of Governments (LCOG). During the Team’s second meeting, the group
evaluated the feasibility of the various incentives and identified the highest priority tools to
recommend. The completed Development Tool Memos are hosted on the project website.
The Task Team was supportive of the following actions/recommendations related to tools
and incentives:
•The continued use of City of Eugene Affordable Housing program funds for new housing
units and renovation of existing units within the Bethel Area is key to provide housing,
create quality development, and support retail businesses.
•The MUPTE property tax incentive is a critical element for the success of any market-
rate multi-family housing development, including the housing component of mixed-use
projects.
•One of the greatest tools the City can provide is to improve internal process to better
support new redevelopment projects, as is outlined with the ‘Strategy’ section of this
report.
•Continued support for Lane County Economic Development financial and marketing
assistance to food related businesses has a positive impact on jobs within the Area.
•Proposed expansion of the Urban Growth Boundary (UGB) for Industrial Lands is critical
to meeting the needs of new businesses and the expansion of existing businesses.
•Engagement with the Bethel Business Community on use of existing business loan and
grant packages, including ‘micro-loans’ is critical.
•Use of System Development Charge (SDC) financing should continue as a means to
lower the initial cost of projects.
•Evaluate the criteria of the existing West Eugene Enterprise Zone for greater flexibility
and use, as well as expand it to cover the proposed UGB expansion.
•Capitalize on the previous federal Brownfields Grants to apply for and acquire additional
funding for site clean-up as a stimulus for increased private investment.
•Advocating for the Better Bethel community redevelopment vision to show support,
increase interest, and attract investment.
The Task Team’s endorsement of these tools and actions does not automatically make them
happen, but they show support for investment in the community, which in turn helps to
direct work planning, approve decisions, and expand the scope of existing programs.
15April 15, 2019, Work Session – Item 1
www.betterbethel.com
Working together,
we can all build an
even better Bethel.
Supporting Bethel area residents, businesses, and
schools to create a place that has ‘everything right here’.
June2015 April 15, 2019, Work Session – Item 1
Attachment B
April 15, 2019, Work Session – Item 1
ATTACHMENT C
April 15, 2019, Work Session – Item 1
Summary of Planning Documents-Bethel Neighborhood 2
Bethel has been included in a variety of area-specific and city-wide planning processes. This section
summarizes planning documents that affect Bethel. The document first describes area-specific
plans, then city-wide plans that include Bethel.
For the purposes of this summary document, the Active Bethel Citizens (ABC) neighborhood
boundary will serve as the Bethel neighborhood boundary. This is bounded by the following streets,
graphically shown in Figure 1:
North of the railroad tracks,
East of Green Hill Road,
South of Clear Lake, and
West of Highway 99N.
Area-Specific Planning Documents for Bethel
The City of Eugene develops plans to assist with neighborhood improvement, economic
development, and specific neighborhood concerns such as transit access. These documents include
policy guidance, economic development tools, and planned infrastructure improvements. In this
section we briefly describe the planning document, its purpose and its impacts to the Bethel
neighborhood.
Danebo Neighborhood Development Program—1970
In 1969 the City of Eugene’s Urban Renewal Agency undertook a project in the Bethel
neighborhood called the Danebo Neighborhood Development Program. This program utilized one-
time federal Housing and Urban Development funding to revitalize the neighborhood by installing
basic infrastructure and by eliminating blighted living conditions. The project area is roughly a
nine-square block area north of Barger Drive, between Ohio and Minnesota Streets, shown in Figure
2.
The following objectives are outlined in the Neighborhood Development Program.
Rehabilitation of properties not to be acquired.
Install public facilities: streets, curbs, sidewalks, sewer, lights and park.
Acquisition, clearance, sale, lease or retention of properties for rehabilitation or
redevelopment by private or public under provisions of Urban Renewal plan.
Acquisition and clearance of properties in proposed park site.
Development of low- moderate income housing.
The Bethel Refinement Plan—1975 and 1982
The Bethel Refinement Plan was created in 1975 and updated in 1982. This is the active planning
document specific to the Bethel Area. This plan was developed by the City in partnership with the
Active Bethel Citizens and the Bethel Triangle Neighbors planning teams. It addresses land use, the
urban services area and urban growth boundary along with transportation. The plan also includes
neighborhood goals from the residents of Bethel.
The plan’s land use section focuses on general land use and nodal development in three specified
areas (the Barger-Beltline development node, Royal-Danebo development node, and West Bethel-
Danebo development node) and Bethel-Triangle neighborhood development.
April 15, 2019, Work Session – Item 1
Summary of Planning Documents-Bethel Neighborhood 3
The plan’s urban services section identifies policies and proposals for sanitary sewer, parks,
schools, fire protection, and electric power and water. The 1982 Metro Plan identifies an urban
growth boundary which includes additional land in the Bethel-Danebo plan area. The Refinement
plan seeks to define how services will expand to these new lands while improving urban services to
the developed Bethel-Danebo neighborhood areas.
The plan’s transportation section identifies the neighborhood goal as “to provide a safe, pleasant,
efficient circulation system for foot, bicycles, automobile, and mass transit traffic.”
Bethel Refinement Plan Phase 2—1977 and 1979
The Bethel Refinement Plan Phase 2 was completed in two parts, the first in 1977 and the second in
1979. It serves as the Phase 2 document for the original 1975 Bethel Refinement Plan. Phase 2 is
still an active planning document, specifically focusing on the West Eugene Industrial Study. This
study concentrates on physical improvements to diversify the economy in this part of West Eugene.
The Plan’s two major projects are the Roosevelt Extension and Drainage Facility which provide
improved drainage heading west and eliminate the mix of industrial development and its impacts
with residentially zoned land. Both studies were adopted by City Council.
Build a Better Bethel—2015
This plan focuses on the economic vitality of the Bethel area. Completed in 2015, its goal is to create
an area that has ‘everything right here’, by identifying 12 economic development-related action
items that can build a better Bethel in the short term (up to 3 years) and medium term (up to 5
years).
The planning process found that the Bethel area already contains many vital elements that
contribute to a strong, vibrant community. One of the primary points that came up for plan’s Task
Team was the perception of Bethel as a less desirable area of the Eugene community. Despite the
significant community-building progress that has occurred within Bethel, these successes have not
been communicated outside the Bethel neighborhood, and have done little to combat the
misperception. Additionally, this perception is reinforced by factors such as the underutilization
and underdevelopment of property along Highway 99, an important travel corridor for Eugene
residents travelling in and through the Bethel area. The plan found that, overall, the Bethel area has
not seen the same growth as Eugene as a whole, despite housing a large number of Eugene’s
citizens.
To develop this document, a Task Team identified the following nine ideas to describe “What is
missing in Bethel?” as a way to focus efforts.
1. Basic amenities nearby;
2. Infrastructure refinement.;
3. Sense of connection;
4. Building up Bethel residents so all their needs are met in the community;
5. Strong employment base;
6. Activity and recreational opportunities;
7. Natural area destinations;
8. Entertainment; and
9. Excitement.
The Plan focuses on improving Bethel and promoting economic development using 12 key action
April 15, 2019, Work Session – Item 1
Summary of Planning Documents-Bethel Neighborhood 4
items in the Bethel area, separated into short term (up to three years) and medium term (up to five
years) sections, with an variety of identified responsible parties.
Short Term
Develop criteria and process for fast track permitting
Enact zone changes and code amendments
Create Bethel Business Alliance
Review Enterprise Zone criteria and expand to match UGB
Expand UGB- Clear Lake Road
Create and implement a targeted business assistance strategy including ‘Gold Zone’
Engage in rebranding of Bethel area to align with positive trajectory
Medium Term
Create support position to aid in permitting process
Complete site predevelopment to attract business expansion, prioritizing key industries
Expand work force development partnerships
Expand recreation facilities to increase sports-based activities and tourism
Help retain and grow the food sector industry in West Eugene
Clear Lake Development Strategy - In process
The Clear Lake Development strategy serves to guide the use of 924 acres of land after
incorporation into the urban growth boundary in 2018. This incorporated area is north of the
neighborhood boundary, but will have an immense impact on the economy, quality of life and
attraction to the Bethel neighborhood. The land was designated for additional jobs, parks, and
schools after a robust community outreach process. The community envisions the Clear Lake area
primarily as a green employment center offering large sites for low-impact manufacturing, light
industrial uses, offices, commercial services, and health & technology uses which are estimated to
add up to 3,000 jobs. Also anticipated is a new Bethel School District elementary school and
enhancements to Golden Gardens Park, a large community park adjacent to the existing Bethel
neighborhood. Expansion of city infrastructure will provide roads, stormwater, and sewer services
to these developments as they annex into the city. An area-wide green infrastructure system is
planned to manage storm water, protect wetland and floodplain resources, and mitigate impacts to
natural resources and the environment. A comprehensive analysis of areas outside the current UGB
revealed few areas that fit the needed criteria for such sites. The land is broken down by acreage for
the following-
Bethel School District: 134 acres,
Green Space: 222 acres, and
Private Land for development: 568 acres.
April 15, 2019, Work Session – Item 1
Summary of Planning Documents-Bethel Neighborhood 5
City-wide Planning Documents
The City of Eugene has planning documents that identify city-wide goals and policies and planned
city-wide infrastructure improvements. Some of these documents include planned infrastructure
improvements in the Bethel area. Figure 3 is a map that visually shows the location of planned
improvements in Bethel. In this section we briefly describe the planning documents, their purpose,
and how they impact the Bethel area.
Pedestrian Bicycle Master Plan (PBMP)-2012
The Pedestrian Bicycle Master Plan identifies goals, objectives, policies, and activities that
contribute to the walkability, bikeability, and connectivity in Eugene. This plan serves as an interim
update to the larger Transportation System Plan specifically for biking and walking projects.
The PBMP identifies projects, an estimated project cost (if applicable), and time frame (either in a
20-year time frame or future). Within or adjacent to the Bethel area there are 44 improvement
projects planned. When projects are linear, a length in miles is estimated. The Bethel area has an
estimated 23.64 miles of bike and sidewalk infrastructure improvements planned in the PBMP.
Metro Plan-2015
The Metro Plan is the partner to Envision Eugene, serving as the primary source of information for
land use planning until Envision Eugene is fully updated. The Metro Plan focuses on growth
management principles and policy frameworks and identifies the specific elements that serve to
guide our planning work at a regional scale. The policies in the Metro Plan are broad and likely
apply to Bethel as projects become more defined. Overall, the Metro Plan seeks to improve the
housing stock in terms of quality, location, and affordability, maintain natural elements and
farmland, improve transportation (which has been addressed in Envision Eugene), preserve
historic elements, encourage economic development, and encourage dense, environmentally
friendly design. The specific elements within the Metro Plan are as follows-
1. Residential Land Use and Housing Element
2. Economic Element
3. Environmental Resources Element
4. Willamette River Greenway, River Corridors, and Waterways Element
5. Environmental Design Element
6. Transportation Element
7. Public Facilities and Services Element
8. Parks and Recreation Facilities Element
9. Historic Preservation Element
10. Energy Element
11. Citizen Involvement Element
Envision Eugene-2017
The Envision Eugene Comprehensive Plan is a formally adopted, legally binding land use plan that
was adopted by City Council in July 2017. Policies in the Envision Eugene Comprehensive Plan
direct the City as it considers future legislative actions. The Envision Eugene Comprehensive Plan
will ultimately contain a set of chapters that address a full range of specific aspects of land use
planning. The pillars of Envision Eugene are as follows:
1. Provide ample economic opportunities for all community members
April 15, 2019, Work Session – Item 1
Summary of Planning Documents-Bethel Neighborhood 6
2. Provide housing affordable to all income levels
3. Plan for climate change and energy resiliency
4. Promote compact urban development and efficient transportation options
5. Protect, repair and enhance neighborhood livability
6. Protect, restore and enhance natural resources
7. Provide for adaptable, flexible, and collaborative implementation
The initial review of Envision Eugene created the chapters that address Economic Development,
Transportation, Administration and Implementation, and the Urban Growth Boundary.
Transportation policies are carried over from the 2035 TSP.
Transportation System Plan-2017
The Transportation System Plan (TSP) is a 20-year transportation planning document which
carries forward many of the PBMP projects that have yet to be funded. The TSP identifies projects,
an estimated project cost (if applicable), and time frame (either in a 20-year time frame or future).
The TSP identifies 61 projects that occur within or adjacent to the Bethel neighborhood that would
potentially be completed in the 20-year horizon of the plan. The projects are classified as:
Roadway, Multimodal, Transit, and Rail projects (identified by main corridor, but also
including complete street upgrades of existing streets);
Pedestrian and Bicycle projects (including access ways, neighborhood greenways, protected
bike lanes, on-street bike lanes, shared use path, sidewalk path, grade separated path or
sidewalk, and sidewalks);
Beyond 20-years projects;
Study projects; and
Upon-development projects.
Of these 61 projects, 19 are classified to occur as development occurs in the Bethel area, meaning as
properties develop or redevelop these projects would be completed to serve new development. The
timing of these projects is uncertain.
Eugene Parks and Recreation System Plan-2018
The guiding goals of the System Plan are to:
care for and make the most of what the community has by finding secure funding for
maintenance, renovating, and expanding existing community centers and pools, reinvesting
in parks in disrepair, reenergizing downtown open spaces;
serve the entire community with large regional centers and in areas that are underserved;
create more connections to trails, water sources, neighborhoods; and,
build better partnerships by leveraging public dollars and private partnerships and
partnering with service providers to bring needed assets to neighborhoods and enhance the
value of parks and recreation assets.
The Eugene Parks and Recreation System Plan divides the city into six geographically based parks-
planning districts. The System Plan identifies the existing resources in each of the planning districts,
any issues and needs, and specific projects identified for that area. The Bethel neighborhood is one
of the six planning districts.
April 15, 2019, Work Session – Item 1
Summary of Planning Documents-Bethel Neighborhood 7
As an overview, the Bethel parks planning district currently has 1,722 acres of parks, recreation
and open space (including partner-owned lands), with 859 of those acres owned by the City of
Eugene, second highest city-wide only to the Southeast planning district in the Plan. Approximately
64% of these acres are natural areas, 8% are developed, and the remaining 27% are for future
development. The acreage of land reserved for future development is the city’s highest at 229 acres,
and is the second highest percentage of city commitment (27%) only behind the River Road/Santa
Clara planning district (34%). Additionally, Bethel has one of the highest concentrations of the city’s
courts, sports fields, and skate parks.
The identified issues and needs paired with the existing facilities and their condition to develop a
list of 43 identified projects ranging from $15,000 to $25 million. Each project receives an
estimated capital cost and a priority ranking.
Moving Ahead-2018
Moving Ahead serves as a multi-corridor alternatives analysis for bus rapid transit improvements.
One of the corridors studied is the Highway 99 Corridor, the easternmost major roadway in the
Bethel neighborhood boundary.
The analysis proposes three alternatives: a No-Build Alternative, an Enhanced Corridor Alternative,
and an EmX Alternative, each bringing benefits and impacts to the surrounding land uses. The plan
organizes the alternatives by operations and capital investments. Operations refers to
improvements required for a more frequent level of bus service. Capital investments refers to the
investments needed for these transit improvements and additional bicycle and pedestrian
improvements outside of the TSP. The analysis also looks at the impacts of each alternative.
The No-Build Alternative lists capital investments as the bicycle and pedestrian projects identified
for Highway 99 in the 2035 TSP. The Enhanced Corridor Alternative identifies improvements to
better serve transit needs on the Highway 99 corridor in addition to the previously listed TSP
projects and nine new enhanced crossings, two upgraded crossings, reconstructed and new
sidewalks, and a pedestrian bridge connecting Bethel to the Trainsong neighborhood. The EmX
alternative identifies the highest level of capital investments to best serve the transit, bike, and
pedestrian needs of the corridor.
Compared to the No-Build Alternative, the Enhanced Corridor and EmX Alternatives significantly
decrease transit travel time (by 10 and 12 minutes, respectively) and would increase ridership
more than any other corridor (by 111,000 and 267,000 annual trips, respectively). Both build
alternatives would provide more frequent transit service. The No-Build Alternative avoids impacts
(including property acquisitions, on-street parking impacts, and potential tree removal) and costs,
but does not provide the same level of benefits compared to the Enhanced Corridor and EmX
Alternatives.
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Summary of Planning Documents-Bethel Neighborhood 8
Figure 1. Geographic boundary of the ABC neighborhood
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Summary of Planning Documents-Bethel Neighborhood 9
Figure 2. Danebo Neighborhood Development Plan area
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Summary of Planning Documents-Bethel Neighborhood 10
Figure 3. Planned Infrastructure Improvements in the Bethel area
April 15, 2019, Work Session – Item 1