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CCAgenda-4/12/04WS
~City Council City of Eugene 777 Pearl Street, Room 105 Eugene, Oregon 97401-2793 (541) 682-5010 (541) 682-5414 FAX (541) 682-5045 TTY www. ci.eugene.or, us EUGENE CITY COUNCIL AGENDA April 12, 2004 5:30 p.m. CITY COUNCIL WORK SESSION McNutt Room, City Hall Meeting of April 12, 2004; His Honor James D. Torrey Presiding. Councilors Bonny Bettman, President George Poling, Vice President David Kelly Scott Meisner Nancy Nathanson Gary Pap~ Jennifer Solomon Betty Taylor 5:30 P.M. CITY COUNCIL WORK SESSION McNutt Room, City Hall 5:30 p.m. A. ITEMS FROM MAYOR, CITY COUNCIL AND CITY MANAGER 5:50 p.m.* B. ACTION: Downtown Plan Update and Related Metro Plan and Code Amendments An Ordinance Amending the Eugene-Springfield Metropolitan Area General Plan Diagram to Add the ND Symbol to the Eugene Downtown Plan Area; Redesignating the Federal Courthouse Site From Heavy Industrial to Commercial; Adopting a Severability Clause; and Providing an Effective Date; and An Ordinance Adopting a New Eugene Downtown Plan as a Refinement of the Eugene-Springfield Metropolitan Area General Plan; Repealing Resolution No. 3882 and the Eugene City Council Agenda: April 12, 2004 L:\CMO\2004 Council Agendas\M040412\A040412P-l.doc Eugene Downtown Plan Adopted Therein; Amending Section 9.9540 of the Eugene Code, 1971; Adopting a Severability Clause; and Providing an Effective Date 6:35 p.m.* C. WORK SESSION: An Ordinance Concerning the Downtown Area; and Proposed Amendments to Sections 3.344, 4.871, and 4.872 of the Eugene Code, 1971 * Time approximate The Eugene City Council welcomes your interest in these agenda items. This meeting location is wheelchair- accessible. For the hearing impaired, FM assistive-listening devices are available or 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 682-5010. Telecommunications device for the deaf assistance is available at 682-5045. All council meetings are telecast live on Metro Television, Comcast channel 21, and rebroadcast later in the week. E1 Consejo de la Ciudad de Eugene aprecia su inter6s en estos asuntos de la agenda. E1 sitio de la reuni6n tiene acceso para sillas de ruedas. Hay accesorios disponibles para personas con afecciones del oido, o se les puede proveer un interprete avisando con 48 horas de anticipaci6n. Tambi6n se provee el servicio de interpretes en idioma espafiol avisando con 48 horas de anticipaci6n. Para reservar estos servicios llame a la recepcionista al 682-5010. Hay aparatos de telecomunicaci6n disponibles para ayudar a personas con obstrucciones del oido permanentes al tel6fono 682-5045. Todas las reumones del consejo estan gravados en vivo en Metro Television, canal 21 de Comcast y despues en la semana se pasan de nuevo. FOR MORE INFORMATION CONTACT THE COUNCIL COORDINATOR AT (541)682-5010. I~SIT US ON THE WORLD WIDE WEB AT WWW CI. EUGENE. OR. US Eugene City Council Agenda: April 12, 2004 L:\CMO\2004 Council Agendas\M040412\A040412P-l.doc EUGENE CITY COUNCIL AGENDA ITEM SUMMARY Action: Downtown Plan Update and Related Metro Plan and Code Amendments An Ordinance Amending the Eugene-Springfield Metropolitan Area General Plan Diagram to Add the ND Symbol to the Eugene Downtown Plan Area; Redesignating the Federal Courthouse Site From Heavy Industrial to Commercial; Adopting a Severability Clause; and Providing an Effective Date; and An Ordinance Adopting a New Eugene Downtown Plan as a Refinement of the Eugene- Springfield Metropolitan Area General Plan; Repealing Resolution No. 3882 and the Eugene Downtown Plan Adopted Therein; Amending Section 9.9540 of the Eugene Code, 1971; Adopting a Severability Clause; and Providing an Effective Date Meeting Date: April 12, 2004 Agenda Item Number: B Department: Planning and Development Staff Contact: Nan Laurence www. cl. eugene, or. us Contact Telephone Number: 682-5340 AGENDA ITEM SUMMARY The updated Downtown Plan will provide long-range direction for future development, improvements, and activities in the downtown area. When adopted, this plan will replace the 1984 Eugene Downtown Plan as a refinement to the Eugene-Springfield Metropolitan Area General Plan. The final text draft of the Downtown Plan is included as Attachment A. Adoption of the Downtown Plan as a new refinement plan and approval of the Land Use Code Amendment and Metro Plan Amendments listed above must be by ordinance; please refer to Attachments B and C. BACKGROUND This discussion is a follow-up to the January 26, 2004, public hearing. Additional information on the review and approval process for the Downtown Plan and related Land Use Code and Metro Plan amendments can be found in the Agenda Item Summary for that hearing. Council Action History City Council held a work session on the Downtown Plan and related Metro Plan and Code amendments on December 1, 2003. The council held a public hearing on these items on January 26, 2004, and closed the record following the close of the hearing. Changes requested by the council at the work session and the public hearing have been incorporated into a text only version of the Downtown Plan, as shown on Attachment A: Downtown Plan, Final Text Draft, dated February 9, 2004. Staff is in the process of developing a Downtown Work Plan based on the implementation strategies and project examples in the plan. This work plan will be presented to the council at a future work session. L:\CMO\2004 Council Agendas\M040412\S040412B.doc Policy lssues Please refer to the Agenda Item Summary for the January 26, 2004, public hearing. Council Goal Action Priority Please refer to the Agenda Item Summary for the January 26, 2004, public hearing. Financial and/or Resource Considerations Please refer to the Agenda Item Summary for the January 26, 2004, public hearing. Other Background Information Staff addressed the changes suggested by City Council following the January 26, 2004, public hearing. These changes are presented in legislative version in Attachment A. Staff notes in particular the following changes: 1. EWEB Policy Staff included final changes to the EWEB policy to specify a process by which the required master plan can be approved. EWEB is comfortable with the new text of this policy (page 29). 2. Historic Properties Staff included changes to Chapter IV, Special Places to replace Implementation Strategy #D regarding historic structures as a new policy, and add the word "appropriate." This change does not increase any protection for any listed property. Policy #4 now reads as follows: "Encourage listing of appropriate structures and sites of historic importance in the National Register of Historic Places or as City of Eugene Historic Landmarks" (page 23). 3. Status of Policies Proposed for Adoption During City Council discussion, questions were raised concerning the applicability of the policies in the plan to land use decisions. Based on direction from the Downtown Plan Update Committee (Planning Commission plus Councilors Bettman, Meisner and Nathanson), the policies in the Downtown Plan are generally aspirational in nature. They are intended to reinforce the desired character and activities for downtown, and to garner broad support and action from all factions in the community. They were not intended to be the basis for a denial of a downtown development. For example, Policy II.3. indicates the City's support for future proposals to re-designate and/or rezone underutilized properties in downtown. The exception is Policy VI.3 (the EWEB policy requiring a master plan before the City can approve an application for redevelopment not associated with EWEB functions). To clarify the intent of the policies, staff has added a statement to the introductory text of the plan, so that section states: "Policies are statements to articulate and move the community towards its goals. With the exception of Policy VI -3, relating to EWEB's riverfront property, the policies in the Downtown Plan are aspirational, and cannot be the basis for denial of public or private proposals regarding change in the downtown" (page 6). Alternatively, this intent could have been clarified by adding text to each aspirational policy to make its aspirational nature clear to the user (e.g. use the word "should" in those policies). As the material is currently presented for the council' s adoption, any applicant proposing a code amendment, zone change or a general (non-needed-housing) CUP or PUD will have to address each L:\CMO\2004 Council Agendas\M040412\S040412B.doc of the plan's policies. For those that are aspirational and that apply to a proposed development, the applicant will need only to show that the policy was considered. By operation of state law, the City can only require that an applicant requesting approval of a partition, subdivision or site review (a limited land use decision) address those plan policies if the City adds the policies to the code. Staff recommends that the council does not add the nonmandatory/aspirational policies to the code. If the council chooses to require that the aspirational policies be addressed as part of limited land use decisions, legal staff recommends that each aspirational policy be revised to make its aspirational nature clear before it is added to the code. This is necessary because the code will not include the explanatory language from the plan's introduction, described above. The suggested revisions to do so are attached hereto (Attachment D). Timing Final action on the updated Downtown Plan and related Metro Plan and Code amendments is scheduled to occur at this meeting, April 12, 2004. Staff is in the process of developing a Downtown Work Plan as noted at the public hearing on January 26. This work plan will be presented to the council at a future work session. OPTIONS The council may: 1. Approve the Downtown Plan and adopt Ordinances No. 1 and No. 2; 2. Request changes to the Downtown Plan and adopt only Ordinance No. 1; or 3. Request changes to the Downtown Plan and to both ordinances STAFF RECOMMENDATION Staff recommends that the council approve the Downtown Plan and adopt both ordinances. SUGGESTED MOTION Move to approve the Downtown Plan as revised and direct staff to prepare a graphic copy for publication. Move to adopt an ordinance amending the Eugene-Springfield Metropolitan Area General Plan Diagram to add the ND Symbol to the Eugene Downtown Plan Area; redesignating the Federal Courthouse site from Heavy Industrial to Commercial; adopting a severability clause; and providing an effective date. Move to adopt an ordinance adopting a New Eugene Downtown Plan as a Refinement of the Eugene- Springfield Metropolitan Area General Plan; repealing Resolution No. 3882 and the Eugene Downtown Plan adopted therein; amending Section 9.9540 of the Eugene Code, 1971; adopting a severability clause; and providing an effective date. L:\CMO\2004 Council Agendas\M040412\S040412B.doc ATTACHMENTS A. Eugene Downtown Plan, Final Text Draft, dated February 9, 2004 B. Ordinance No. 1 and Related Exhibits C. Ordinance No. 2 and Related Exhibits D. Alternative Draft Policy Language Note: The draft Downtown Plan version including illustrations and maps was distributed for the City Council work session on December 1, 2003. Additional copies are available. See staff contact below. FOR MORE INFORMATION Staff Contact: Nan Laurence Telephone: 682-5340 Staff E-Mail: nan.laurence~ci, eugene, or L:\CMO\2004 Council Agendas\M040412\S040412B.doc ATTACHMENT A Eugene Downtown Plan FINAL TEXT DRAFT (Proposed Changes Shown in Legislative Format) February 9, 2004 ACKNOWLEDGEMENTS Eugene City Council Mayor Jim Torrey Bonny Bettman Gary Pape David Kelly George Poling Scott Meisner Jennifer Solomon Nancy Nathanson Betty Taylor City Manager Dennis Taylor Downtown Plan Update Committee Jon Belcher Bonny Bettman Mitzi Colbath Rick Duncan John Lawless Anne-Marie Levis Adell McMillan Scott Meisner Nancy Nathanson Charles Rusch City of Eugene Staff Denny Braud Nat Brown Jan Childs Tom Coyle Ken Guzowski Brett Hanson, intern Chris Henry Robin Hostick Nan Laurence, principal author Allen Lowe Gary McNeel Susan Muir Andrea Riner Brenda Schmidt 2 Matt Shuler Rick Siel Mike Sullivan Glen Svendsen Matt Synder Richie Weinman Kurt Yeiter Graphic Design Cindee Lee Design Historic photos courtesy of the Lane County Historical Museum Front Cover Library Photo Courtesy of John Bauguess © 2002 Any business, organization or individual outside the city must ask for permission to use the photograph. Public participation was a critical element in the framing of this plan. Special thanks to the hundreds of citizens who participated in public workshops and discussions for the Downtown Vision, the Courthouse District Concept Plan, North End Scoping Project and other downtown planning activities. For more information or additional copies of this plan, please contact the City of Eugene Planning Division, at 541-682-5481. TABLE OF CONTENTS Introduction I. Strong Regional Center II. Building a Downtown III. Great Streets IV. Special Places V. Living Downtown VI. Downtown Riverfront VII. Cultural Center VIII. Safe Civic Center IX. Getting Around Downtown Epilogue: Making it Happen Maps Downtown Concept Plan A Dozen Downtown Development Opportunity Areas Downtown Financial Tools Downtown Historic Places Downtown Area Housing Eugene Water and Electric Board Aerial Photo Appendix (Note: Maps and page numbers are not included in this text only version) 4 INTRODUCTION Downtown Eugene is the heartbeat of activity in Lane County. Downtown is our civic center and the economic, cultural and governmental focus of the region. Downtown is the place where a wide range of people come for work, celebration, commerce, entertainment, and living. This combination of economic and social activity creates the vitality of downtown, the identity of our city, and the strength of our regional economy. This plan focuses on the character of our downtown as a special place, and presents ideas and policies regarding current conditions and desired changes. This plan renews our vision for downtown, and builds on momentum and enthusiastic community support for a strong and active urban center. Two central themes run throughout this document. First, the City will reinforce downtown Eugene as a strong regional center. City officials will work closely with property owners, developers and community members to bring about a diverse, dense and economically strong urban center. The City will encourage the transformation of vacant and underutilized sites and support the development of commercial, residential, and cultural activities. Second, the City will strengthen downtown as a cultural center and the center of community life. The City will coordinate with public and private developers to create special places downtown. The City will establish a network of great streets downtown that links parks and plazas, cultural and commercial activity areas. The City will create a walkable and memorable downtown, a downtown of short distances and inviting destinations. These ideas are illustrated on the Downtown Concept Plan on Page 5. Background The previous Eugene Downtown Plan was adopted in 1984 and reflected the issues and challenges of that time. Since then, numerous plans and studies focused on downtown, calling for significant public and private investment. Some of this energy and focus was reactive, a response to the changes in downtown shifting from a retail-based market to an employment-based market. Much of the work has also been strategic, a concentrated effort to strengthen downtown by introducing more housing and capitalizing on key development opportunities, such as Broadway Place, the new Eugene Public Library and the new Federal Courthouse. In 2000, the Eugene City Council appointed a Committee for Greater Downtown Visioning to develop a vision for downtown. The vision that emerged promoted downtown as a thriving, active urban center with ties to our rich natural heritage, a variety of intermingled activities, and safe, inviting streets. In 2001, City Council accepted the Vision for Greater Downtown Eugene and directed staff to use it as the basis for an updated Downtown Plan. This current plan for downtown incorporates the Vision into a framework for public and private decisions affecting downtown in the future. The plan builds on previous plans and studies. A list of this previous work is included in the Appendix. Downtown Plan Study Area The Downtown Plan study area includes the downtown core and immediate adjacent areas. The study area overlaps with three neighborhood refinement plan areas, the Whiteaker Plan, the West University Refinement Plan, and Jefferson Far West Refinement Plan. Where the policies of this plan conflict with adopted policies in previous plans, this most recent plan prevails. Organization of this Plan The plan includes nine related elements, each a fundamental aspect of downtown urban vitality and economic strength: I. Strong Regional Center II. Building a Downtown III. Great Streets IV. Special Places V. Living Downtown VI. Downtown Riverfront VII. Cultural Center VIII. Safe Civic Center IX. Getting Around Downtown The discussion of each element includes policies, implementation strategies, and examples of possible projects. Only policies are adopted by the City Council. Council. Policies are statements to articulate and move the community towards its goals. With the exception of Policy IV 3, relating to EWEB's riverfront property, the policies in the Downtown Plan are aspirational, and cannot be the basis for denial of public or private proposals regarding change in the downtown. I pl ti gie ..... ~ ^c ~, ..... ,~vo tactics *~* ,r.~ t-:, ..... m ementa on strate s are ....... v ................................. ., .... unde?d~ce re. flow to address the policies. Implementation strategies ~ 0~.,; .... , ~- ,h ..... ;~.~;~;,., ~c.A ..... ,~ n..a;., often require coordination be~een ei~ departments or divisions. Projects are examples of specific prop8gals actions that the City may choose to undeffake or pa~icipate in. The list in this plan is neither definitive nor comprehensive; projects are often contingent on ~ public funding, ~d development oppoffunities. Use of this PI~ The policies, implementation strategies and projects in the plan comprise the basis of a Downtown Work Plan, including short- and longer-term coordinated work activities to be implemented over time based on City priorities and available funding. In addition, t~his plan will be used to guide public and private decisions regarding change in downtown, including: · Administration, creation and prioritization of City programs and services impacting downtown; Review of City regulations or ordinances to support desired development downtown; · Review of other plans and policies that affect downtown; · Preparation of the City's Capital Improvement Program; and · Response to public and private development proposals. This plan will help the community make choices about the future of downtown, since the entire community has a role in revitalizing our downtown. It is the intent of the plan to inspire investor confidence, not only in terms of financial capital, but also through time, talent, and commitment to a thriving urban center. The plan reinforces our vision for the heart of our city, our ever-changing, ever-evolving downtown. 7 STRONG REGIONAL CENTER Downtown is the premier location for major commercial, governmental and cultural activities for Eugene, Lane County and the southern Willamette Valley. Downtown has the largest concentration of employment in the region, with thousands of employees in the city center five days a week. Downtown Eugene is home to municipal, county, state, federal and other professional offices patronized by citizens from all comers of the metropolitan area. Most of the region's financial institutions are headquartered downtown, with branches located throughout the city. Major activity centers are located just outside of the downtown core, including the University of Oregon and the Lane Events Center at the Fairgrounds. Both are easily accessible by foot, bike, public transit or car from downtown. Land use policies, as well as technology, transportation infrastructure and other critical services are in place to strengthen and expand the role of downtown Eugene as the regional center. Commercial Activities Downtown Eugene has historically served as the business center in the Eugene- Springfield metropolitan area. Like many other cities, downtown Eugene has evolved from an economic center of industrial uses and anchor retail stores to a center for professional and government services. Approximately 15,000 people work in the downtown area. Over the past twenty years, downtown employment and the volume of downtown office space has increased dramatically. The majority of all office space in Eugene is currently located downtown. Commercially zoned properties in downtown Eugene have some of the highest land values in the metro area. Commercial activities benefit from the central location and the concentration of other business and government activities in the downtown core. Downtown office buildings in particular are among the highest value development in the region, strengthening the economic base for downtown. Dense commercial office development generates significant employment opportunities and pedestrian activity, which in turn supports retail, restaurants, cultural and entertainment venues. Civic Center Downtown is both a regional center, and the civic center of our community. Public offices belong downtown, including state, federal and local institutions, as well as non- profit organizations. The new library, relocated to the downtown core from its previous location south of 13th Avenue, is the pride of the entire community. City Hall, the Lane County Courthouse, and the new Federal Courthouse are all located on 8th Avenue. Other uses such as existing and future downtown fire stations, +~'~ C-emer;, the downtown LTD Eugene Station and numerous state and federal offices 8 support the multi-faceted civic character of downtown. The Eugene Convention Center draws people downtown from the city and the region for a multitude of conferences and events, both public and private. Cultural Center Downtown is the location for major cultural events. Regional attractions such as the Oregon Bach Festival, the Oregon Festival of American Music, local opera, symphony and ballet companies perform downtown at the Hult Center and the Shedd Institute for the Arts. Smaller theatres, art galleries and related arts activities are also centered downtown. Downtown has significant examples of public art sculptures, fountains, and decorative paving ornamenting buildings and public spaces. These creative activities and works of art reinforce downtown's character and economy. Educational Activities Located east of downtown, the U of O is home to 20,000 students. The U of O is a strong component of the identity of downtown as well as the entire community. Other education facilities, such as Northwest Christian College, Pacific University, Lane Community College's downtown campus, and the U of O's Baker Center are in or near downtown. The large number of students contributes diversity and vitality to downtown and supports businesses and employers. The City encourages downtown development that is compatible with this educational community. Policies 1. Build upon downtown's role as the center for government, commerce, education and culture in the city and the region. 2. Downtown development shall support the urban qualities of density, vitality, livability and diversity to create a downtown, urban environment. Implementation Strategies A. Help employers locate, remain and expand downtown by targeted use of economic tools and incentives. B. Work with individuals, service and advocacy groups such as the Chamber of Commerce, the Convention and Visitor's Association of Lane County (CVALCO), leasing agents, builders, and Downtown Eugene, Inc. to attract high density commercial and residential development downtown. C. Promote multi-story, mixed use structures downtown through financial incentives or code amendments. E. Work with local, state and federal offices to locate, remain or expand in downtown. F. Promote visitor and convention use of existing facilities in or near downtown, including exhibit and meeting spaces, lodging and restaurants. G. Work with major medical providers to locate their facilities in and near downtown. H. Encourage education-related development downtown, such as student housing and support services. Projects Examples of possible projects that address the implementation strategies: · Locate a headquarters or regional office facility downtown. · Expand the square footage of convention facilities downtown. · Provide incentives for the location of medical facilities downtown. · Provide incentives for the redevelopment of the Sears site for a multi-story office building. · Coordinate with the U of O to locate university offices downtown. 10 BUILDING A DOWNTOWN Downtown Eugene operates in a regional economy. In order to maintain the economic strength of downtown, the City will take a proactive role in promoting the desired dense, high quality development and targeted investment downtown. The City will prioritize public actions that support downtown development by working closely with developers, leveraging economic tools and City-owned property to achieve desired results. The City will be poised to act on opportunities and challenges as they arise. Building Partnerships The City cannot be a passive or isolated player in building our downtown; a proactive, collaborative, strategic focus is essential. The City will work with developers and landowners to facilitate projects that build an active, inviting, economically strong downtown. Partnerships and a collaborative work ethic are necessary within the City workforce as well. The City will strive to ensure that every level of the City organization involved in public projects or project review downtown works together in support of the vision for downtown. Capitalize on Development Opportunities The City's ability to capitalize on development opportunities represents the best prospect for bringing the vision expressed in this plan to reality. This plan provides the policy framework that supports appropriate development in downtown. This plan also emphasizes the flexibility and commitment to respond to unanticipated opportunities. As change occurs with business relocation and expansion, new development opportunities arise. The City will be responsive to the needs and opportunities that these changes represent. Many of the strongest downtown developments in the last twenty years were not predetermined in the previous plan for downtown. Examples include Broadway Place, the Shedd Institute for the Arts, LTD's Downtown Station, and the location of the new library. But the City has worked to be prepared for such opportunities, to facilitate and expand desired development downtown. The Dozen Downtown Development Opportunity Areas map on page 47 indicates the location of some of these potential sites. Financial Tools The targeted use of economic development tools is a key part of the City's commitment to a vital downtown. Market conditions often result in higher costs for downtown development, due to a variety of financial constraints and barriers such as assembling smaller parcels for larger projects, higher land costs, vertical and mixed-use construction costs and parking needs. However, development in the core area of the city places less 11 impact on infrastructure and transportation systems, which is ultimately less expensive and more sustainable over the long run. Yet the viability of each individual development project is primarily driven by project cost and risk. Therefore, when the cost and complications of development downtown is greater, development will inevitably occur outside of the downtown area. The City will strategically use collaborative and financial tools to counter these market conditions and influence the location, character and density of development. Collaborative tools focus on technical development assistance such as reviewing projects or working to promote a more favorable lending environment. These tools often have timing and cost implications, such as fast tracking permits, or providing fee assistance. Financial tools include revenue for development projects or incentives from a variety of sources, as listed below. The Downtown Financial Tools map shown on page 48 indicates the location of those tools that are geographically based, including the urban renewal districts. Typically, the purpose of economic tools is to close the gap between the development costs in the downtown core and development costs outside of downtown. Incentives can be used to encourage retail activity and improve the architectural character of new or redeveloped properties. The focused use of these tools materially impacts the location and quality of development, and the image of downtown Eugene as a place to do business and to live. · Urban Renewal Districts Tax increment revenue generated through the two urban renewal districts in downtown is the primary financial tool for downtown projects. This revenue can be used for a wide range of development purposes within each district, from land acquisition to renovation and faCade improvements. The City's Urban Renewal District Plans include the requirements of the districts and list examples of downtown-related projects. · Commercial Revitalization Loans Urban renewal revenue can be used to make loans for building rehabilitation, renovation, facade improvements, historic preservation, tenant improvements, accessibility, and general property improvements within the Downtown Urban Renewal District. · Multi-Unit Property Tax Exemption (MUPTE) The program offers a ten-year property tax exemption for the construction of new multi- unit rental or ownership housing within an eligible boundary. · Vertical Housing Development Zone The program offers a ten-year tax exemption on mixed-use projects within an eligible boundary that include housing above ground floor commercial. · New Markets Tax Credits 12 This is a federal program that uses funds generated from tax credit sales for economic development. · Community Development Block Grant (CDBG) Funds received from the federal government each year can be used for activities such as job creation, elimination of slums and blight, and accessibility improvements. · HUD 108 Loan Guarantee This federal program allows communities to borrow up to five times their annual CDBG allocation in order to fund eligible CDBG projects. · Fee Assistance and Permit Fast-Tracking Waiving or reducing the cost of permit fees or System Development Charges (SDCs), or fast tracking the permit process, can be used to offset the higher cost of developing downtown. · Revenue Bonds An existing revenue source (i.e. urban renewal tax increment) can be used to generate larger amounts of up-front funding that is paid back over time. * General Obligation Bonds A voter approved property tax levy is used to generate up-front funding for specific capital improvement projects. · Local Improvement Districts Infrastructure improvements such as streets and sidewalks are paid through property owner assessments. · Parking New and existing public parking can be used to assist private development downtown. Easily available parking encourages downtown business and cultural activities, and creates a positive experience and perception of downtown. Facilitating Development The City's role in facilitating development is multifaceted. Planning activities, such as insuring that appropriate zones are in place downtown, set the stage for desired development. Currently, a number of base zones and overlay zones are in place downtown, including two commercial zones, the Transit Overlay District, and the Broadway Design Standards. All zoning regulations for downtown should be reviewed to look for ways to simplify and expedite development downtown. In addition, there are underused and vacant sites throughout downtown. Some of these parcels downtown are not designated for commercial use, or are designated commercial but not commercially zoned. These sites, which include surface parking lots downtown, need to be redesignated or rezoned to allow for the commercial redevelopment envisioned in this plan. 13 Design Quality Well designed projects create an inviting urban experience and strengthen the overall desirability of downtown in the regional marketplace. Design quality is not dependent on a particular architectural style. It requires an understanding of the elements of buildings necessary to create public spaces that contribute to urban vitality and civic life. Successful project designs typically demonstrate the following principles: · Use high quality materials, particularly on the first floor; · Incorporate works of public art; · Promote active first floor uses; · Provide prominent entries facing public streets; · Place buildings close to the sidewalk; · Respect the context and character of adjacent historic buildings. Design regulations are currently in place in the Land Use Code for commercial and multi- family residential projects. Incentives may be needed to assist high quality development in downtown. Examples include a loan fund for awnings, outdoor seating, historic renovation, specially designed or coordinated signs, or additional streetscape amenities. Policies 1. Actively pursue public/private development opportunities to achieve the vision for an active, vital, growing downtown. 2. Use downtown development tools and incentives to encourage development that provides character and density downtown. 3. Facilitate downtown development by re-designating and rezoning underutilized properties, such as surface parking lots, to commercial land use designation and a commercial zone such as C-2 or C-3. Implementation Strategies A. Facilitate desired development by providing financial incentives and resources. B. Amend the Riverfront Research Park Urban Renewal Plan to expand the boundaries and extend the district's life. Use it to facilitate desired development, particularly in the Courthouse and riverfront areas. C. Expand the use of revenues in the Downtown Urban Renewal District in order to provide financial tools and incentives for desired development within the district. D. Establish a new Downtown Urban Renewal District to better capitalize on commercial and housing development opportunities in the areas immediately outside of the existing core-area downtown urban renewal district, and between the downtown core and the emerging Courthouse development area. 14 E. Develop a differential city fee structure or subsidy of fees for downtown development. F. Perform a regulatory audit to identify impediments to achieving higher density, mixed-use development and redevelopment downtown. G. Identify and facilitate infrastructure improvements as a public incentive for private development. H. 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. Projects Examples of possible projects that address the implementation strategies: · Provide incentives for the redevelopment of the vacant Bon Marche/Symantec building and vacant Centre Court building. · Promote dense, mixed-use developments on the surface parking lots located at Broadway and High Street and Broadway and Pearl Street. · Issue request for proposals for purchase and development of the City-owned property adjacent to the new Federal Courthouse site. · Provide incentives for faCade improvements and redevelopment of retail spaces on Broadway between Willamette Street and Chamelton Street. · Work with private property owners toward the redevelopment of the commercial warehouses on 8th Avenue in the Courthouse area. 15 GREAT STREETS Great Streets connect special places with safe, convenient and interesting routes. They are pedestrian-oriented in design and appearance, with retail and other active ground floor uses. They accommodate bicycles, slow-moving automobile traffic, on-street parking and emergency vehicles. Great Streets are places people choose to walk along and return to. The concept of Great Streets was one of the most strongly supported ideas in the Vision for Greater Downtown Eugene as a way to characterize downtown and focus public attention and funding. These Great Streets will be the basis of a walkable downtown network that encourage pedestrians and retail activity. Historically, Broadway and Willamette Street were the important streets downtown. 5th Avenue and 8th Avenue were also key streets, one for market activities and one for civic uses. Part of what makes these streets great is their connection to places that are important in the history of our community, reinforced by building design and the location of public art. All four of these streets need to be designed as urban open space, to transcend the function of moving traffic and flourish as pedestrian routes and destinations. A public improvement strategy will be created to reinforce the special character of each Great Street. Improvements will include elements such as special paving, street trees, benches and ~nfc,~atic, n signs and street furniture. Design guidelines are already in place for buildings that front Broadway between Oak and Chamelton. Similar guidelines should be extended to all the Great Streets to promote high quality, pedestrian orientated design. Commercial signs or signs for information, direction, or public safety need to be well designed and placed along these streets to add to the sense of purpose and activity, not increase the visual clutter. Willamette Street Willamette Street is the historic main street of Eugene. Although the historic buildings clustered at Broadway and Willamette are gone, the street remains the significant commercial street in downtown. Several blocks along Willamette have been improved with the removal of the pedestrian mall, but a unifying concept for the portion of this street between 5th and 13th Avenues still needs to be developed and implemented. Willamette Street opens onto the plaza at Broadway and Willamette and the Hult Center Plaza. The City should consider changes to the Hult Center Plaza to enhance the visual connection between Skinner Butte and Spencer Butte, and if possible, allow access for transit and emergency vehicles. The north end of Willamette Street ends at the train depot. A pedestrian connection across the railroad tracks to Skinner Butte Park has been desired for many years and should be vigorously pursued. Broadway The pedestrian ambience along parts of Broadway is among the best downtown. It is consistently ranked as a favorite retail location for window shopping and dining. Ground 16 floor retail, restaurants, and sidewalk activities such as outdoor cafes are specifically encouraged along this street. In 2002, Broadway was reopened to accommodate automobiles, with enhanced public spaces and pedestrian amenities. The redesign honors the unique role of this street as a public venue for such events as the Eugene Celebration and First Night. Improved pedestrian crossings at Broadway and Mill are included in the planned transportation improvements for the Courthouse District. These improvements are opportunities to create a gateway into downtown from State Highway 99 (Franklin Boulevard). 8th Avenue Historically, 8th Avenue has functioned as a "Civic Street." It was the location for the Park Blocks, originally including all four comers of 8th and Oak. The 1875 City Hall, which included a j ail and firehouse, and the Lane County Courthouse were all located on 8th Avenue. This avenue is still the location for major public buildings, including City Hall and the County Courthouse. The new Federal Courthouse will continue this tradition, with its location on 8th Avenue east of Mill. The civic character of 8th Avenue should be reinforced through a linked series of existing and planned open spaces. These include the Park Blocks, Cannery Square in front of the new Federal Courthouse, the Millrace, and a proposed riverfront plaza. 8th Avenue is t~le The City has begun the process of creating a concept for a civic center, including a new City Hall and police headquarters, possibly with other local government agencies. The preferred location for the new civic center is on 8th Avenue, between the Park Blocks and Mill Street, either on the existing City Hall site, or on a block facing 8th in the immediate vicinity. 5th Avenue 5th Avenue was an early market street. Today, the downtown urban quality of 5th Avenue stretches from Chamelton Street to High Street. 5th Avenue is the location of a variety of uses and unique building types, ranging from trendy shops and restaurants to the Lane County jail. Existing historic buildings along 5th Avenue have been adapted for modem uses, including the Farmer's Union Building, the Lane Hotel, the Granary, the Oregon Electric Station, and the 5th Street Public Market. This avenue has its own retail character and historical identity, different from the other Great Streets, due to the varied building types, setbacks and activities. Design guidelines for 5th Avenue need to respond to the quirky and fragmentary quality of the avenue, the historic context, and the development potential that exists along its length. These guidelines need to stress filling in the gaps along the street and encouraging buildings with minimal setbacks and parking in the rear. Currently, 5th Avenue ends at the railroad tracks at High Street, with pedestrian access to the riverfront only through a small path in EWEB's parking lot. An improved connection 17 is needed to provide visual and physical access to the Willamette River and the riverfront path system. Downtown Gateways All four Great Streets provide major entrances into, not just through, downtown. These entrances should be distinct to signify these streets and to reinforce the identity of downtown. A creative solution including public improvements such as landscaping and artful direction and information signs should be crafted for each key location. Policies 1. Emphasize Broadway, Willamette Street, 5th and 8th Avenues as Great Streets through public improvements and development guidelines. Include portions of these streets as follows: · Willamette between 5th and 13th Avenues · Broadway between Lincoln and Hilyard · 5th Avenue between Lincoln and High Street (with potential extension to the Willamette River) · 8th Avenue between Willamette Street and the Willamette River 2. Strongly encourage the location of significant municipal, county, state and federal buildings along 8th Avenue. Implementation Strategies A. Develop a separate design strategy for each Great Street. Include street improvement elements such as: public art, special planting schemes, center medians, street lamps, benches and kiosks, banners, and building, street and information signs. B. Develop design guidelines for buildings along the Great Streets. Include elements such as setback, quality of materials, design of first floor, and treatment of parking. C. Link Great Streets to important public places, including urban plazas and open spaces. D. Seek funding and develop a plan for a new City Hall and police station along East 8th Avenue. Projects Examples of possible projects that address the implementation strategies: · Implement street improvements for 8th Avenue, with public art elements, special light standards, signs and street furniture. 18 · Implement a design study and possible acquisition of land to make a stronger pedestrian connection from 5th Avenue to the dverfront. · Create a pedestrian connection across the railroad tracks between the end of Willamette Street and Skinner Butte. · Provide a loan fund for faCade improvements along West Broadway. · Include signs, public art and landscaping at the gateways to downtown along Broadway and Willamette. · Begin site analysis of possible locations along East 8th Avenue for a new City Hall and police station. 19 SPECIAL PLACES Special places for economic and social interactions create the vitality needed for a tree downtown environment. Downtown is a collection of special places, including buildings, plazas and parks. These special places are a fundamental component of urban vitality. They draw people downtown for their unique character, intensity and variety of activities. These special places for commerce or recreation reinforce downtown's unique character, based on local history and civic traditions. Not coincidentally, these places are generally located along the Great Streets of Eugene and feature works of public art. These places must be inviting and easily accessible throughout downtown, for planned and serendipitous encounters, for special times and for every day. Special Places Downtown The Park Blocks The Park Blocks are the heart of downtown Eugene, the city's stage for celebration and commerce. They are used on a daily basis as an urban oasis, and they are filled with people during times such as the Saturday Market and Farmers' Market. Strategies to maintain the Park Blocks as the ceremonial center of the city should include consideration of areas that were historically part of the original park, including all four comers of 8th Avenue and Oak Street. Buildings surrounding the Park Blocks are encouraged to maintain or develop street level active uses to contribute to the activity and safety of the Park Blocks. Broadway Plaza Located at the historic crossroads of Willamette and Broadway, Broadway Plaza was designed to provide a special place in downtown. It is used on a regular basis for sitting, eating and talking with friends. It is transformed on special occasions into an outdoor theatre for large public events. It showcases public art, including special paving, the Four Seasons sculptures, and carefully crafted ceramic tiles. An enhanced connection between Broadway Plaza and the Park Blocks is needed to create a prominent pedestrian path between these two downtown destinations. Hult Center and Shedd Institute for the Arts The Hult Center and the Shedd are significant cultural destinations. Performances at both locations bring citizens and visitors to downtown from all over the community and region. The Hult Center Plaza is packed with people during events such as the Eugene Celebration or free performance previews. The Shedd is a recent and wonderful addition to downtown, housed in the former First Baptist Church. This architecturally significant structure is located on Broadway, close to restaurants and shops. In addition to concerts and performances, the Shedd offers instruction and workshops in the arts. Eugene Public Library Our new downtown public library has become a very special place for the community. The library includes both indoor and outdoor public plazas, children's activity area, 20 public meeting rooms, a caf6 and a used bookstore. Public art is located throughout the building and exterior spaces. The library draws people of all ages downtown, for events and activities and the simple pleasure of finding a book to read. The River The Willamette River is a treasured recreational and environmental asset, and should be a fundamental aspect of the identity and vitality of our city. The EWEB fountain and riverfront plaza is one of the few points of access to the river in downtown. Access to the riverfront from downtown will be enhanced as neighboring areas develop and 5th and 8th Avenues are improved as Great Streets. The plan supports the creation of a carefully designed at-grade crossing of the railroad tracks at 8th Avenue, with an inviting civic destination where 8th Avenue ~ leads to the river's edge. Development and activities along the riverfront should support the use of this special area as an urban recreational resource. Views of the river from adjacent developed areas should be emphasized. The Millrace and Cannery Square The Millrace is a visible reminder of the city's industrial beginnings. Only a portion of the Millrace is an exposed waterway; the remainder is in a culvert at the end of Ferry Lane, west of Patterson Street until it reaches the Willamette River through the EWEB property. Recent planning efforts around the new Courthouse reinvigorated ideas for the Millrace to provide an above-ground pedestrian path to the river. Design concepts and cost estimates for Millrace improvements vary widely. This plan supports the concept for full daylighting of the Millrace, between the existing surface waterway ending at Ferry Lane and the outfall on the EWEB property. Cannery Square is the name proposed for the public space envisioned near the comer of Ferry Street and 8th Avenue, in front of the new Federal Courthouse. This space will be designed as part of the improvements to the Courthouse area and may include Millrace improvements. Cannery Square is envisioned as part of the sequence of public spaces along 8th Avenue leading from the Park Blocks to the river. 5th Avenue Area The 5th Street Market is one of the best loved and most successful places downtown. It is a downtown destination for workers, residents and visitors. A number of other popular places are located along 5th Avenue, including shops and restaurants. Rehabilitation of the train depot at the north terminus of Willamette Street just north of 5th Avenue is underway. Future improvements may include a railway overpass, a vehicular and pedestrian loop and a public plaza. Much of the train depot area is designated and zoned for industrial uses. This area will be redesignated and rezoned to allow commercial development compatible with the adjacent downtown area. Projects that help to "fill in" the missing pieces between activity areas are especially encouraged. Historic Properties Historic properties are special places downtown. Not coincidentally, many historic structures are located along the Great Streets. These structures remind us of the history of 21 our community and the architectural heritage that characterizes Eugene. They deserve recognition through informational plaques and walking tour brochures. Some of the historic crown jewels include the WPA-era post office and the McDonald Theater on Willamette Street, the Oregon Electric Station on 5th Avenue, and the Tiffany Building on 8th Avenue. The Historic Places map on page 49 indicates properties of historic interest downtown. Some of these properties have been designated as City Landmarks or as National Register properties; the remainder are older structures that reinforce the sense of history and the walkable character of downtown. New development needs to respect the quality of historic structures. It is not typically necessary to duplicate older buildings in terms of details or styles. Instead, new design must be sensitive to historic context and character, such as maintaining the same street orientation, setback or quality of materials. New buildings must preserve and capitalize on the value of historic structures. The City encourages listing of significant structures in the National Register of Historic Places or as City Landmarks. Historic preservation planning identifies resources that are traditionally over 50 years of age, so many modem era (1935-1965) resources are coming into their own for consideration as landmarks. Properties listed as historic are eligible for financial incentives and special consideration for flexibility within the land use code. Listing of historic structures increases our understanding of local history, people and places and helps preserve these properties for the future. Listing of historic structures requires consent of the property owner, public or private. Nearby Open Spaces Downtown is bordered by a wealth of extraordinary open spaces - Skinner Butte Park, Alton Baker Park, and the extended Willamette River Greenway park system. These places provide great views of the city or the fiver, and opportunities for outdoor recreation. Activities such as biking, canoeing, kayaking, even rock climbing and bird watching take place directly next to Eugene's commercial core. Eugene's unique community identity and quality of life are intricately bound to these nearby nature areas. These areas complement the urban experience downtown. They become even more critical as density and intensity of uses increase in the downtown core. These areas must be easily visible and accessible from many points downtown. They should be promoted as a key element in the marketability, economic viability and livability of downtown. Policies 1. Enhance public places throughout downtown through the careful design of civic buildings, streetscapes, parks and plazas. Include public art and other elements to create special places for all ages. 22 2. Connect special places downtown with enhanced street designs, public art, directional signs, transit routes, and historic markers to create an inviting and memorable route through downtown. 3. Promote adjacent park and open space areas as a valuable complement to downtown's urban places. Improve connections between downtown and nearby nature areas. 4. Encourage listing of appropriate structures and sites of historic importance in the National Register of Historic Places or as City of Eugene Historic Landmarks. Implementation Strategies A. Encourage the creation of new special places especially along the Great Streets. B. Amend the Eugene-Springfield Metropolitan Area General Plan to redesignate the train station from industrial to commercial land use, and rezone to a commercial zone such as C-2 or C-3. C. Create an artful directory sign program throughout downtown that directs people from special place to special place. E. Prepare an open space plan for downtown that includes the Park Blocks, parks adjacent to downtown and the riverfront path system. F. Provide places downtown that appeal to children and families. Consider places to play or learn about the city. Design places with kids in mind. G. Identify areas along streets that can be enhanced by landscaping, art or pedestrian amenities. H. Support programming for music, art and other events in the special places downtown. I. Maintain views and access from downtown to nearby open space areas. Include signs and sidewalk improvements. J. Create a civic design review board to assist in and approve the designs for all civic facilities, particularly in our downtown core. K. Reinforce the continued use of the Park Blocks for the Saturday Market and Farmer's Market. 23 Projects · Examples of possible projects that address the implementation strategies: Install graphics for downtown information and directions at the Park Blocks. · Develop a funding strategy to daylight the Millrace from Ferry Lane to the Willamette River. · Locate a play structure for kids near the Park Blocks. · Work with Lane County to develop a mixed use or civic structure in place of the butterfly parking lot on Oak Street between 7th and 8th Avenues, to better integrate this site with the Park Blocks. · Implement a historic plaque program and walking tour. 24 LIVING DOWNTOWN Housing is essential to the vitality and the character of the downtown core. Housing transforms downtown from an institutional and employment center to a neighborhood. People who live downtown, particularly homeowners and long-term renters, become stakeholders for the health of downtown. They enhance the customer base for shops and restaurants, and provide an after-hours vitality to the area. As patrons for these businesses increase, the downtown becomes more attractive to local and regional investors. Downtown Housing Downtown housing is increasingly seen as convenient and prestigious. Demographic projections indicate growing interest in smaller urban dwellings close to work and services downtown. Cultural activities and public transit are attractive to potential urban dwellers, who are beginning to imagine a future without the expense of an automobile. Live/work units are convenient and efficient, add to the liveliness of downtown, and help reduce transportation needs in the city. A variety of housing densities and types exists within and along the edges of downtown. Approximately 2,500 residential units e-x-ist are located within two blocks of the downtown plan area, including single family houses, mixed-use structures, and residential -rises ....... e ...... a ......... ~ .-~, ..................... ~ ......... e, .... ...... +.~,;~ ~r~;o+~ ...... ~;~ wi+h .... n~ tr~ ~;~ed ...... s. The Downtown ~ea Housing map on page 50 indicates the location ~d density of residential units in and around do--town. This plan encourages additional housing units within downtown and on the edge of downtown. Both rental and ownership housing at a variety of densities and prices are desired and should be supported with economic tools available to the City. Design and construction of new residential structures should be sensitive to the character of existing historic properties and neighborhoods. Design review for new structures is needed to help ensure compatibility of scale, setback and orientation, and maintain livability of these areas. Market Conditions Market conditions, specifically the higher cost of building housing downtown than elsewhere in the city, have been a deterrent to downtown housing without some level of public sector financial support. Currently there are approximately 1,000 residential units in the downtown plan study area. The majority of these units were built in the past 25 years and relied on public financial subsidies. While housing is desirable and encouraged, there are many obstacles associated with the development of housing downtown. These include higher land costs, higher construction costs associated with taller structures, the need for secure parking, and market rents that are not high enough to support the cost of development. For mixed-use housing projects, 25 the obstacles and costs are even greater due to the complexity associated with financing, construction, compatibility of uses, parking, and market demand. Recent economic studies conclude that demand in downtown's current real estate market is not sufficient to overcome the obstacles and related costs. Therefore, the public sector must take an active role in facilitating downtown housing projects. Tools that can play an important role in stimulating downtown housing include the Multi-Unit Property Tax Exemption program (MUPTE), a Vertical Housing Development Zone, revenue from urban renewal districts, public lending, parking, land assembly, Federal Low-Income Housing Tax Credits and bonding. Neighborhood Preservation Residential neighborhoods on the periphery of downtown provide a relatively high residential density bordering the commercial core. Residents in these areas take advantage of the proximity of downtown activities and nearby open space. These neighborhoods have a high concentration of historic properties, with walkable, tree- lined streets. The Downtown Plan recognizes the value of these neighborhoods to the community and to downtown. Policies 1. Stimulate multi-unit housing in the downtown core and on the edges of downtown for a variety of income levels and ownership opportunities. 2. 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. Implementation Strategies A. Expand the MUPTE program boundary to encourage housing on the edges of downtown. Periodically review boundaries and expand to include areas where additional housing is appropriate. B. Establish a vertical housing tax exemption zone in order to encourage residential density and mixed-use development. C. Develop additional financial tools to assist with the development of housing, including the use of bonds, tax increment financing, land assembly and parking. D. Remove regulatory barriers to the development of housing in commercially zoned areas downtown, while ensuring compatibility of uses and design. E. Reinforce opportunities for home ownership downtown. 26 F. Seek opportunities to equalize the costs of building housing in and near downtown compared with locations elsewhere in the city. G. Support the continued residential use of structures in neighborhoods bordering downtown. Projects Examples of possible projects that address the implementation strategies: Build an affordable or mixed income housing development on the 8th Avenue "land bank" site east of the WOW Hall. · Develop a residential mixed-use project on Willamette Street incorporating the former Woolworth site and Centre Court building. · Encourage rehabilitation of older multi-story rental housing south and east of the downtown core. · Seek new opportunities for owner-occupied housing in or near downtown through incentives such as MUPTE, CDBG, and Urban Renewal. · Assess and mitigate the impact of infill development in the neighborhood areas immediately adjacent to downtown. · Conduct a downtown area housing policy analysis to assess the impact of policies affecting neighborhoods on the periphery of downtown and recommend policy amendments to promote housing preservation. 27 DOWNTOWN RIVERFRONT The vision for downtown is an active, strong urban core connected to the river. Bringing downtown development near the banks of the river, and expanding elements of the river environment into downtown, reconnects the city to our heritage and our most precious natural resource. Development near the river brings creates an experience that is both urban and wild, and provides economic development opportunities that are uniquely Eugene. Bringing the river environment into developed areas creates a sense of place based on our great river, and draws people back to the river itself. Eugenians have long envisioned a reconnection between downtown and the Willamette River. In Eugene's earlier days, the river was the center of activity and industry. Over the years, the city has grown away from the river. The river, too, has changed, and the once plentiful Chinook salmon is now federally listed as a threatened species. This plan promotes the development of an environmentally sensitive, "fish friendly" urban waterfront to bring people from downtown to the river. A combination of public and private actions will be required, both in the near and long term, to realize this vision. EWEB Property EWEB's riverfront property represents the best opportunity for the development of a downtown riverfront. This property, approximately 27 acres, is currently used for EWEB's utility operations and administration offices. If EWEB succeeds in its efforts for a phased relocation from this site, much of this land will become available for redevelopment. Buildings remaining on the site should be evaluated for reuse and historic significance, such as the Steam Plant. A timeline is not identified for EWEB to leave the site, nor has any redevelopment scenario been proposed or approved. The EWEB Property map on page 51 depicts the EWEB riverfront and adjacent areas downtown. The redevelopment of EWEB's property requires a well-conceived concept to bring Eugenians and visitors to the river's edge. A master plan for future development or reuse of the EWEB site is needed, so that short-term actions do not preclude a comprehensive, thoughtfully designed plan for the property in the future. This master plan will emphasize a "people place" on the river, balancing the development potential of the site with an environmental strategy to ultimately benefit the river environment. Ample open space with nearby dense development will provide opportunities to enjoy this special area in all seasons, and strengthen the connection between downtown and the river. Courthouse District The Courthouse district is an emerging downtown area, centered around the Federal Courthouse on the former Agripac property on East 8th Avenue. This area lies directly between the core of downtown and the river. With the projected transportation improvements to 6th Avenue, 8th Avenue will connect across Mill Street, providing improved pedestrian and vehicular connections. Much of this area is zoned industrial. Rezoning will be required to encourage a mix of uses through private redevelopment. A variety of commercial and residential uses will create the activity consistent with the 28 character of the core of downtown, while allowing the unique character of this area to emerge. 5th Avenue A 5th Avenue connection to the riverfront has been a part of the vision for downtown for decades. The east end of 5th Avenue ends at an at-grade railroad crossing at High Street. This area of 5th Avenue is already a popular downtown destination. An inviting pedestrian route from the terminus of 5th Avenue would allow some of the eclectic energy and character of this street to extend to the river. A full street extension would allow more intensive reuse of EWEB's properties, including areas currently used for surface parking. Additional River Connections Other connections to the riverfront from downtown currently exist and should be enhanced. These include Lincoln Street and High Street, providing access to the river from Skinner Butte Park. These existing connections lie just outside the reach of this plan but within easy walking distance from downtown. Multiple points of access will strengthen the river as a key element in the character of our downtown and the heritage of our community. The City should support all practical means of establishing or enhancing existing connections to the public waterfront. Connections from downtown to the river need to be well-marked, with carefully designed signs for information and direction. Policies 1. Incorporate the Willamette River as an integral element to downtown planning and development. 2. Collaborate with EWEB to encourage relocation of their utility facilities. plan br the EWEB riverfront proper~ must be approved by the ei~ bebre any redevelopment, land use application, rezoning, Metro Plan or refinement plan diagram amendments are approved br uses not associated with EWEB functions. The master plan shall be evaluated based on the master plan's consistency with principles A through D below: A. Create a "people place" that is active, vibrant, accessible and multi-use. B. Provide appropriate setbacks, deeper where enviromental or habitat issues are more critical, shallower in other areas. C. Inco~orate appropriate building and site desi~ tec~iques that address enviromental concerns. D. Inco~orate ~ educational aspect, so that the fiverffont improvements teach us about our river, our history and our city. 29 The master plan shall be considered using the City's Type II application procedures, unless the applicant elects to have the master plan reviewed concurrently with a Type III, Type IV or Type V application. 4. Facilitate dense development in the Courthouse area and other sites between the core of downtown and the river. Implementation Strategies A. Create inviting physical and visual access to the riverfront from 8th and 5th Avenues, and explore opportunities for additional access between these two points. B. Rezone the Courthouse area from Light-Medium Industrial 1-2 to a commercial zone compatible with downtown. C. Reinforce the relationship between downtown and the river through landscaping, art, signs, street furniture, historic plaques and markers. D. Conduct a study of riparian habitat values and restoration opportunities within the Willamette River riparian zone to guide protection and restoration activities in that area, and to identify those areas of lower habitat value. E. Enhance existing points of access from downtown to the river so that convenient connections are visible both from the riverfront to downtown, and from downtown to the river. F. Explore possibilities for parks or public open space along the riverfront. Projects Examples of possible projects that address the implementation strategies: · Partner with EWEB to develop a master plan for the EWEB site. · Assess and provide mitigation for stormwater issues related to the potential development of riverfront properties. · Introduce pedestrian-related improvements along all paths leading to the river. · Develop an adaptive use concept for EWEB's Steam Plant. · Daylight the Millrace to connect downtown to the river and capitalize on this historic waterway. 30 CULTURAL CENTER Cultural and entertainment activities bring people together downtown and fuel the imagination and creative soul of our city. Downtown Eugene is rich in cultural and entertainment events. Programs at the Hult Center attract visitors from all over the region. The Saturday Market and Farmers' Market bring residents and visitors to the Park Blocks, and tens of thousands of people attend yearly events such as the Eugene Celebration and Eugene First Night. Other events and locations include downtown theaters, restaurants, and art exhibits. These activities are as much a part of downtown Eugene's identity and character as the local weather. Ours is a creative, unique community, a city that takes itself seriously but not too seriously. To maintain this identity, attitude and market cache, the City will encourage and accommodate an inviting variety of creative activities and venues. The City will reinforce downtown as a destination for all ages, from January to December. Visual and Performing Arts The arts community in Eugene is creative and enthusiastic, visible and vocal. Numerous arts activities are downtown, including local arts at the Saturday Market, gallery exhibits, monthly First Friday art walks, street performances and theatre performances. Special events such as the Mayor's Art Show, the Salon des Refuses, and the occasional tuba concert complement ongoing work of artists, writers, even instrument makers. These activities reinforce downtown as a creative, distinctive place, with people coming together to exchange ideas and share results. Downtown needs to be a place for the production and display of artistic endeavors. An art museum, an idea still in its conceptual stages, could be a key cultural venue for Eugene's center. Studio spaces and places for live performances are encouraged, as are live/work units in and near downtown. This plan also promotes arts activities in the special places downtown. Local History History is an important part of the cultural heritage and identity of downtown. Many buildings of historic importance are located within the traditional grid of downtown streets. Many older structures are key downtown locations, such as the former Ax Billy Building, now the Downtown Athletic Club, and Swift Company Poultry Plant, now the 5th Street Market. Many of the open space areas adjacent to downtown provide active and passive educational activities related to our local cultural and natural history. Skinner Butte Park, for example, includes the land once claimed by Eugene Skinner. This park has been used for decades as a living classroom for local history and plant diversity. The rich Native American history of this area is illustrated by the Kalapuya Talking Stones, in the Whilamut Natural Area of Alton Baker Park. 31 Historic markers are important to recall the original names and uses of places and buildings, so that the layers of history can enrich the present. Plaques and signs are important to mark important buildings now lost, as well as events and people significant to the history of our community. Places such as the Wayne Morse Free Speech Plaza, in front of the County Courthouse, or Cannery Square, envisioned in front of the new Federal Courthouse, teach us about what we value and want to remember. The Lane County History Museum, currently located at the Fairgrounds, is considering relocation. A downtown location would enrich the cultural opportunities available in the city center and is highly encouraged. Restaurants Eugene is well known for a variety of restaurants located throughout downtown, bringing residents into the heart of the city. Restaurants and cultural events are synergistic; dinner before a show or dessert after is routine for many concert and theater -goers. Restaurants round out the activities downtown, supporting other uses in the daytime, catering to residents, or drawing people downtown in the evenings. Adjacent Activity Centers Numerous entertainment, sporting events and festivals take place at the Lane Events Center at the Fairgrounds, southwest of downtown. These activities and events dovetail with downtown restaurants, lodging and retail opportunities. These activities and other exhibit and convention events are encouraged to remain in and near downtown. The U of O provides opportunities for speakers of local, national and international reputation on a wide variety of topics, and numerous music and theatre performances. Sporting events at the U of O, specifically track, football, and basketball, draw tens of thousands from all over Eugene and further. The U of O's historic art museum is being restored and expanded, and will continue to provide a cultural resource for the community. Nearby open space areas and park facilities provide a venue for cultural activities that complement events and programs downtown. The Cuthbert Amphitheater hosts nationally known musicians in a wonderful outdoor setting. The annual Art in the Vineyard festival showcases local and regional artists in an open space in Alton Baker Park. Cultural and recreational events in these areas should be promoted as part of downtown's cultural attraction. Policies 1. Provide and promote development and community events that reinforce downtown's role as the cultural center for the city and region. 2. Reinforce the creative, distinctive culture of downtown as the arts and entertainment center of the city. 32 Implementation Strategies A. Collaborate with adjacent activity resources, including the U of O and the Lane Events Center at the Fairgrounds to enrich the cultural and entertainment opportunities available in and near downtown. B. Promote visitor and convention use of existing facilities in and near downtown, including exhibit and meeting spaces, lodging and restaurants. C. Encourage and support a stable arts community downtown. Review existing zoning provisions and modify if necessary to remove obstacles to creative arts activities downtown including live performance venues, artist live/work spaces, and galleries. D. Seek new public art opportunities. Include public art into building design, street design, signs, and public open spaces throughout downtown. E. Recognize the importance of Eugene's historic buildings and places with signs, plaques and pedestrian connections. Promote buildings, landmarks, or events that have distinct historical value or special assets that contribute to the character of the downtown. F. Promote continued success of the Farmers' Market, Saturday Market, and Eugene Celebration and other downtown events by supporting public/private parmerships such as Eugene in Common. G. Collaborate with the Lane County Historical Museum to encourage a downtown location. H. Research market potential and available incentives for major new cultural or recreational venues, such as a new art museum downtown. I. Provide opportunities, programming and financial tools to encourage activities along the Great Streets and in the special places downtown, including performers, art events, and street vendors. Include plans for rainy days. J. Collaborate with Lane Arts Council to encourage and market art activities downtown. K. Promote cultural and entertainment activities in parks and open space areas adjacent to downtown, including Skinner Butte Park and West Alton Baker Park. L. Enhance the 13th Avenue corridor between the Lane Events Center at the Fairgrounds, downtown, and the U of O. Projects Examples of possible projects that address the implementation strategies: 33 · Help locate a multiplex cinema downtown · Partner with DEI for programming events at Broadway Plaza. · Work with Downtown Initiative for the Visual Arts to find a suitable location for an art museum downtown. · Install creative banners as marketing tools and directional signs. · Create an annual political speakers forum for the Wayne Morse Free Speech Plaza. 34 SAFE CIVIC CENTER The City will provide for the safety and security of downtown residents and visitors. Public safety is an essential municipal responsibility, and is a key factor in maintaining downtown's economic strength and appeal. Actual safety as well as perception of safety is paramount. People come downtown for many reasons, but they are less likely to come if they donXt feel secure and respected. In turn, a vibrant, active, artful, engaging downtown, with people out and about, increases "eyes on the street" and the sense of urban well-being. Police Police activities address deterrence of criminal activity through surveillance, police presence and apprehension of individuals engaged in criminal activity. Police officers assist with safety issues and provide information about downtown. Partnering with DEI's downtown guides has increased surveillance and assistance downtown and enhanced the efficiency of the Police Department's limited resources. Community policing downtown is a major component of the Eugene Police Department's Strategic Plan. Public support is necessary to maintain a downtown Community Police Station, currently at the downtown LTD Eugene Station. A new downtown police station will be required in the near future, due to major seismic concerns and space constraints in its existing location at City Hall. An 8th Avenue address is highly desirable, but will have to be considered in light of a number of functional factors influencing its location. Fire and Emergency Medical Services Fire and EMS will soon be located in a new facility at Willamette Street and 13th Avenue for efficient access to downtown, mid-town and the West University neighborhood. Buildings downtown need to accommodate emergency vehicular access and provide adequate staging areas. This need is particularly critical adjacent to high use facilities, i.e., convention, entertainment, and multi-story structures. Space for fire fighting or EMS access needs to be considered in the design of new developments, and existing buildings may require retrofitting. Transportation Streets downtown need to be designed to favor pedestrians, but also to facilitate effective emergency vehicle access through the downtown area. Traffic calming measures need to be balanced with ease of access for emergency vehicles and equipment. As many downtown streets as possible should be converted to two-way access. As noted under Great Streets, Willamette Street should be opened through the Hult Plaza, between 6th and 7th Avenues, for emergency vehicles as well as public transit. Design for Safety Crime Prevention through Environmental Design (CPTED) looks for ways to make an environment work better and to encourage desired behaviors. CPTED concepts are applicable to public and private developments. CPTED principles focus on creating environments where people feel safe, and should be encouraged for all new development 35 downtown. Examples of CPTED measures include placement of doors for greater visibility and interaction and lighting that illuminates faces. Policies 1. Support public safety activities that increase visibility, access, actual and perceived safety for individuals and property downtown. 2. Consider design measures to enhance public safety and emergency vehicle access as an integral component of public projects, including street improvements and building construction. 3. Develop and maintain a community policing plan for the downtown area. Implementation Strategies A. Improve the safety of pedestrian routes between existing clusters of nighttime activity. B. Provide access for emergency vehicles along Willamette between 6th and 7th Avenues. C. Support public/private partnerships such as DEI and downtown guides to maintain additional surveillance and provide public assistance downtown. D. Maintain police presence downtown, through a community police station and bicycle and foot patrols. E. Consider design measures to enhance public safety and emergency vehicle access as an integral component of public projects, including street improvements and building construction. F. Work with property owners, residents and developers to address the principles of CPTED. Projects · Examples of possible projects that address the implementation strategies: · Build a new Community Police Station downtown, preferably on East 8th Avenue. · Improve downtown lighting between centers of nighttime pedestrian activity. · Develop an educational brochure focusing on CPTED principles. · Include CPTED design standards for Great Streets. 36 GETTING AROUND DOWNTOWN A well functioning transportation system is a key component of a well designed, economically healthy, livable city. Transportation goals are intricately connected to urban design and land use goals. In downtown Eugene, the transportation system needs to address issues of access and safety and also less quantifiable issues of improving downtown character, economic strength, and the quality of urban places. Streets, parking structures, sidewalks all of these are opportunities for thoughtful, interesting designs. With careful choice of paving materials, light standards, sidewalk and street alignments, these public works projects become public art opportunities. The streets that result encourage walking, and increase the perception of safety. A well designed, functional street system requires a balance of priorities. Efficient flow of traffic, on-street parking, narrower travel lanes, wide sidewalks, bike lanes, and landscaping are elements that often represent competing issues. In downtown, especially along the Great Streets, priority will be given to pedestrians. CATS The Central Area Transportation Study (CATS) provides analysis and recommendations for transportation issues affecting greater downtown Eugene. CATS includes a detailed examination of traffic circulation, on- and off-street parking, and alternative transportation modes for an area including downtown, mid-town and the West University neighborhood. The discussion in this plan focuses on the relationship of transportation issues to the economic vitality and livability of the downtown core. Recommendations for transportation system improvements in downtown will be implemented through CATS. Great Streets Great Streets are a design issue, a marketing issue, and a transportation issue. In Eugene, our Great Streets, Willamette, Broadway, 8th and 5th Avenues, are special because of their history and development patterns. These streets need a public improvement strategy and coordinated design to reinforce their character and their role of connecting special places, including downtown to the river. These streets must also serve as streets that work. They need to allow diverse modes of transport for residents, workers, shoppers, businesses and property owners. These streets need to be designed so that downtown functions well as a regional and civic center. Access and Gateways The entrances to downtown Eugene are important opportunities to improve the character and identity of downtown. Entrance beautification projects can also provide information and directions for visitors to key destination or special events. The most direct and attractive routes into downtown should be identified with appropriate signs, so that the quality of the entrance experience along these routes can be creatively enhanced. Access to the river from numerous locations downtown is critical to the success of this Downtown Plan. River connections need to be designed to minimize the impact 37 on the riparian edge, and to connect with existing routes and pathways. These connections need to be well-marked, easily visible and identifiable from downtown. Two-way Streets Many of the streets downtown function as one-way couplets, including 6th and 7th Avenues, Pearl and Oak, Lincoln and Lawrence Streets. Other streets arc one-way for a portion, such as 10th Avenue or Chamelton Street. A one-way street typically can carry more traffic volume than a street that has traffic in two directions. While one-way streets simplify traffic operations, especially with a signalized system, thc pattern may induce extra travel, force more traffic on some routes, and limit access to and from businesses. A two-way traffic operation enhances local access for all vehicles, including emergency vehicles. Two-way streets also provide better access to local shops or other destinations, making it easier to get around downtown, not just through downtown. This plan supports thc conversion of one-way to two-way operation for as many downtown streets as practical. Pedestrian System A high quality pedestrian system creates a walkable downtown, enhancing the experience of downtown at a very tangible level. Sidewalks that are safe, accessible, and aesthetically pleasing invite pedestrian traffic, and support other goals such as downtown livability. Increased pedestrian traffic provides very real benefits to downtown, supporting retail, reducing automobile traffic, and increasing safety. Well-designed sidewalks become places for people to be, to stroll or to chat in a comfortable urban space. For our downtown to function well, a network of well-designed and maintained sidewalks is essential. Planned transportation improvements will connect the new Federal Courthouse area to the downtown commercial core with a pedestrian crossing at 8th Avenue and Mill Street. These improvements will provide a safe, convenient route along 8th Avenue from downtown east to the river. The pedestrian system needs thoughtfully placed urban design elements to create a well- designed walking environment. These elements include pedestrian amenities such as mid- crossing sanctuaries, benches, bus shelters, trash receptacles, and lights, as well as inclusion of public art. Sometimes it is the smallest details, a well-placed bench, an historic plaque, or special plantings that provide a degree of refuge, comfort or interest that makes walking in downtown a pleasure. The sidewalks on the Great Streets need a cohesive urban design scheme to set these streets apart as special places in downtown. The improvements to Broadway between Lincoln Street and Pearl Street are a good example of a well-designed pedestrian environment. Each of the other Great Streets, Willamette, 8th Avenue and 5th Avenue needs a public improvement design to enhance its unique history, identity and character. Accessibility 38 Eugene has a well-deserved reputation for accommodating individuals with disabilities. These accommodations include improvements such as textured sidewalk edges and ramps at curbs. These make downtown more welcoming and accessible for all individuals, regardless of ability. The City should continue to invest in improvements that maintain and improve accessibility downtown, and encourage developers of downtown projects to do the same. Bicycle System Bicycle riders throughout Eugene are a hallmark of our city's environmentally conscious character, and a product of local topography and climate. The number of bicycle riders increases as the practical elements required for safe and pleasurable riding are more routinely incorporated into new development and street improvements. Many of the suggested improvements for bicycles in the 1993 CATS have been accomplished. Bicycle lanes and routes have been added on several streets in the CATS area, providing improved access and increased safety for cyclists on these streets. Bicycle parking has been included with recent street improvements, and is now a required element for new buildings. Some long-term bicycle access projects remain, including improvements to Lincoln Street between 1 lth and 13th Avenues, and 10th Avenue between Oak and High, in conjunction with construction of the Bus Rapid Transit project on 10th Avenue. A new bikeway along 6th Avenue, planned in conjunction with the transportation improvements for the Courthouse area, will connect the university area to downtown, from east along Franklin and south along Hilyard. Transit System Our existing transit system facilitates travel to, through and around downtown. In addition to fixed-route service, the downtown shuttle will continue to operate at fifteen- minute intervals, with frequency increasing as ridership grows. The first Bus Rapid Transit (BRT) route is scheduled to begin operating in late 20046, and will provide a higher level of transit service from downtown Eugene to the University of Oregon and downtown Springfield. Fixed-route service will be adjusted to accommodate the addition of the BRT to the system, and coordinate with emergency vehicle access needs. Both the BRT and fixed-route service will use downtown as a transportation hub, connecting downtown to other areas of the city. A fixed-rail circulating/loop streetcar could be a potential transit and economic development strategy to link downtown, the U of O and the Courthouse district. Parking Parking is one ^c~,~ c ........;~;~ ...................... e, a significant tools available to the City in guiding and supporting development in the downtown area. A key strategy is to foresee, plan, and direct developments where parking is available, or provide parking where current demand and planned developments are likely to occur. In downtown, development around the new Federal Courthouse, train depot and the 5th Street Public Market area will likely create additional parking demand at the north end of downtown, where supply is barely meeting the present demand. 39 The number of surface parking lots downtown continues to diminish as development occurs, adding greater intensity of uses. In the past, the use of financial tools to assist with providing downtown parking has often been critical to the success of redevelopment for projects such as Broadway Place. The City needs to refine the parking program in the downtown area and continue to collaborate with property owners and developers to address parking demand. The location and design of parking downtown is critical. Parking areas need to be easily available near downtown destinations. On-street parking should be provided wherever practical. Entrances to parking structures and lots should be located for pedestrian safety and to maximize pedestrian activity at street level. Multi -Modal Connections Easily accessible links among different modes of transportation, as well as parking, make getting around downtown smoother. This plan supports enhanced and well marked connections between bus and shuttle routes, the train depot, and the eventual relocation of intercity and interstate bus service proximate to the train depot area. Policies A. Develop a transportation system that supports the vision of a vital downtown and provides for the safe and efficient movement of automobiles, pedestrians, bicycles, and emergency and transit vehicles. B. v~ `4 ..... · ..... ~ ......:. ,~.~ c^~c..^., cf Promote and support alternative modes ,4 , and accessibility accc. mmc...a3e, n through strategic planning and public investment. C. nm ........... ;~-~ cEnhance functional designs for streets, sidewalks and related public improvements with carefully chosen design elements, including materials, alignments, plantings, and streetscape elements. Implementation Strategies A. Develop specific designs and public improvement plans to convert portions of Willamette, Broadway, 5th Avenue and 8th Avenue to "Great Streets." B. Implement the policies and strategies of CATS, including two-way street conversions, structured parking, pedestrian and bike system improvements. C. Facilitate increased residential and commercial densities within the downtown area to support increased transit, pedestrian and bicycle activity in the area. Require new developments to follow transit and pedestrian-oriented development design guidelines. 40 D, Focus continued transportation and streetscape improvements for the entire right-of- way area, from building face to building face, to improve accessibility and reduce reliance on automobile travel. E. Continue to improve existing pedestrian, bicycle and automobile connections to public riverfront areas. F. Consider a fixed rail transit or trolley system within downtown. G. Identify primary "gateway" entrances to downtown and take necessary steps to enhance the sense of entry, with particular attention to maintaining significant views. H. Create a visual directory for downtown to assist visitors and citizens in finding their destinations. I. Continue to improve and simplify parking lot directory signs, cost information and methods of payment. Projects Examples of possible projects that address the implementation strategies: · Create a grade-level pedestrian crossing at the intersection of 8th Avenue and Mill Street. · Convert 10th Avenue to a two-way street. · Conduct a "walkability" assessment to determine needed pedestrian improvements in downtown. · Construct a bicycle path along the new 6th Avenue extension between Franklin Boulevard and Hilyard Street and 6th Avenue and High Street. · Provide a prominent entrance to downtown from East Broadway near Mill Street. · Construct a new parking garage to support the east side of downtown and the new Courthouse district. 41 EPILOGUE: MAKING IT HAPPEN Our downtown is a regional center, and a walkable collection of special places and special times. It is also everybody's neighborhood, with events and services for the entire city. Downtown is what is "Eugene" about Eugene - a synergistic, creative, accessible place, a downtown of short distances and friendly faces. The character of downtown has changed over the past twenty years, as Eugene has grown in population and area. Downtown is and will remain the center of Eugene, giving an identity and character to the city, and a coming together place for the entire community. The policies and ideas in the Downtown Plan promote a vision for a strong, active, distinctive urban center. For this plan to be meaningful, it has to result in actions and investment that bring about the desired transformation of downtown that this community envisions. The plan reinforces our commitment to a strategic, proactive, collaborative approach, creating partnerships, working with private developers, and using the financial resources available to the City. The plan will help the City make choices for the future. The plan is specific in terms of outcomes, promoting the use of economic tools to leverage desired development, and giving priority to Great Streets and special places. The plan encourages additional housing in and around downtown, but notes the primacy of commercial office space downtown to provide jobs and to support housing and retail opportunities. The plan requires a master plan for the EWEB waterfront property, and lays out principles for that effort. The plan is flexible to provide direction for decisions without overly prescribing actions or projects. In the future, new opportunities and priorities will emerge. The construction of a new hospital or Federal courthouse was not anticipated even a few years ago. The city will change and grow in ways that cannot be predicted. But our vision for downtown as the center of our community will hold true. Based on the framework of the plan, and a little Eugene serendipity, we will strengthen the economic vitality and the special character of our downtown. We will recognize and create opportunities to bring our collective vision for downtown to life. 42 APPENDIX Summary of Policies I. Strong Regional Center 1. Build upon downtown's role as the center for government, commerce, education and culture in the city and the region. 2. Downtown development shall support the urban qualities of density, vitality, livability and diversity to create a downtown, urban environment. II. Building a Downtown 1. Actively pursue public/private development opportunities to achieve the vision for an active, vital, growing downtown. 2. Use downtown development tools and incentives to encourage development that provides character and density downtown. 3. Facilitate downtown development by re-designating and rezoning underutilized properties, such as surface parking lots, to commercial land use designation and a commercial zone such as C-2 or C-3. III. Great Streets 1. Emphasize Broadway, Willamette Street, 5th and 8th Avenues as Great Streets through public improvements and development guidelines. Include portions of these streets as follows: · Willamette between 5th and 13th Avenues · Broadway between Lincoln and Hilyard 5th Avenue between Lincoln and High Street (with potential extension to the Willamette River) · 8th Avenue between Willamette Street and the Willamette River 2. Strongly encourage the location of significant municipal, county, state and federal buildings along 8th Avenue. IV. Special Places 1. Enhance public places throughout downtown through the careful design of civic buildings, streetscapes, parks and plazas. Include public art and other elements to create special places for all ages. 43 2. Connect special places downtown with enhanced street designs, public art, directional signs, transit routes, and historic markers to create an inviting and memorable route through downtown. 3. Promote adjacent park and open space areas as a valuable complement to downtown's urban places. Improve connections between downtown and nearby nature areas. 4. Encourage listing of appropriate structures and sites of historic importance in the National Register of Ilistoric Places or as City of Eugene Historic Landmarks. V. Living Downtown 1. Stimulate multi-unit housing in the downtown core and on the edges of downtown for a variety of income levels and ownership opportunities. 2. 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. VI. Downtown to the River 1. Incorporate the Willamette River as an integral element to downtown planning and development. 2. Collaborate with EWEB to encourage relocation of their utility facilities. ........ ~, ....................... om u c use: master plan for the EWEB riverfront property must be approved by the city before any redevelopment, land use application, rezoning, Metro Plan or refinement plan diagram amendments are approved for uses not associated with EWEB functions. The master plan shall be evaluated based on the master plan's consistency with principles A through D below: E. Create a "people place" that is active, vibrant, accessible and multi-use. F. Provide appropriate setbacks, deeper where environmental or habitat issues are more critical, shallower in other areas. G. Incorporate appropriate building and site design techniques that address environmental concerns. It. Incorporate an educational aspect, so that the riverfront improvements teach us about our river, our history and our city. 44 The master plan shall be considered using the City's Type II application procedures, unless the applicant elects to have the master plan reviewed concurrently with a Type III, Type IV or Type V application. 4. Facilitate dense development in the Courthouse area and other sites between the core of downtown and the river. VII. Cultural Center 1. Provide and promote development and community events that reinforce downtown's role as the cultural center for the city and region. 2. Reinforce the creative, distinctive culture of downtown as the arts and entertainment center of the city. VIII. Safe Civic Center 1. Support public safety activities that increase visibility, access, actual and perceived safety for individuals and property downtown. 2. Consider design measures to enhance public safety and emergency vehicle access as an integral component of public projects, including street improvements and building construction. 3. Develop and maintain a community policing plan for the downtown area. IX. Getting Around Downtown 1. Develop a transportation system that supports the vision of a vital downtown and provides for the safe and efficient movement of automobiles, pedestrians, bicycles, and emergency and transit vehicles. ~ ..... , ..... r~ ...... :~ **,8 c^~c,^~, ,of Promote and support alternative 2. Keep ..............~, ..................... modes and accessibility acc,owa'nadatian through strategic planning and public investment. 3. W~'e-e-'er .... :*'~ eEnhance functional designs for streets, sidewalks and related public improvements with carefully chosen design elements, including materials, alignments, plantings, and streetscape elements. 45 Community Partnerships Members of the community have been very involved in this plan concern and commitment for a healthy downtown is very strong. The community involvement has been extensive and multifaceted, ranging from city initiated events such as design workshops for the Downtown Vision and Courthouse District Concept Plan, to citizen initiated discussions, such as the City Club series on downtown planning. Citizens have been involved in both long term vision discussions and specific design decisions. A list of relevant projects and planning documents is included below. Numerous organizations and agencies have partnered with the City in the development and review of the updated Downtown Plan. These include EWEB, University of Oregon, Lane Transit District, and the Oregon Department of Transportation. These organizations have overlapping interests and commitment, and all have a stake in healthy downtown. Relationship to Other Plans and Studies This plan updates and replaces the Eugene Downtown Plan, approved in 1984. This plan is a refinement to the Eugene Springfield Metropolitan Area General Plan (Metro Plan). The plan is generally based on the Downtown Vision, which was approved in 2000. The policies included in this Plan will direct future actions, including land use decisions and public and private investment in downtown. The Downtown Plan is not the only document guiding actions and decisions in downtown. Other adopted refinement or functional plans, such as the Central Area Transportation Study and the Skinner Butte Master Plan, also apply downtown, in addition to city-wide documents such as the Growth Management Policies and the Stormwater Basin Master Plans. As appropriate, policies and policy direction from other recent plans and studies are reflected in the policies in this plan. A list of those planning documents is provided below; adopted policy documents are shown in bold. These documents provide a finer level of information and detail about particular areas or project downtown, and are available through the City of Eugene Department of Planning and Community Development. Where the policies of this plan conflict with adopted policies in previous plans, this most recent plan prevails. 1. Central Area Transportation Study (anticipated adoption in 2004) 2. Skinner Butte Park Master Plan, 2002 3. Stormwater Basin Master Plan, 2002 4. Courthouse District Concept Plan, July, 2002 5. A Vision for Greater Downtown Eugene (Downtown Vision), November, 2000 6. Eugene Parks Blocks Placemaking Final Report, July, 2000 7. Eugene-Springfield Metropolitan Area Residential Land and Housing Study Policy Recommendations Report, August 1999 8. North End Scoping Group, June 1999 9. Growth Management Study, February 1998 10. Ferry Street Corridor Conceptual Study, June 1995 11. Vision for Downtown Eugene 2015, February 1995 12. South Bank Conceptual Study, September 1994 46 13. Whiteaker Plan, August 1994 14. Central Area Transportation Study, 1993 15. Eugene Commercial Lands Study, October 1992 16. Downtown Core Area Historic Context Statement, November 1991 17. University of Oregon Long Range Campus Development Plan, June 1991 18. Partnerships for Public Safety Long-range Plan, April 1991 19. Site Development Guidelines for Downtown Eugene, January 1991 20. Retail Task Force Urban Renewal Plan, Central Eugene Project, June 1990 21. Eugene Parks and Recreation Plan, July 1989 22. City of Eugene Economic Development Strategic Plan, May 1988 23. Eugene/Springfield Metropolitan Area General Plan, 1987 Update 24. Urban Renewal Plan for Central Eugene Project, June 1987 25. Entrance Beautification Study, April 1987 26. Downtown Development Strategy for the Urban Renewal Plan Update, January 1987 27. Eugene Downtown Public Spaces, April 1986 28. Riverfront Park Study, January 1986 29. Eugene Downtown Plan, October 1984 47 ATTACHMENT B ORDINANCE NO. 1 ORDINANCE NO. AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL PLAN DIAGRAM TO ADD THE ND SYMBOL TO THE EUGENE DOWNTOWN PLAN AREA; REDESIGNATING THE FEDERAL COURTHOUSE SITE FROM HEAVY INDUSTRIAL TO COMMERCIAL; ADOPTING A SEVERABILITY CLAUSE; AND PROVIDING AN EFFECTIVE DATE. The City Council of the City of Eugene finds that: A. On September 10, 2001 the City Council adopted Ordinance No. 20234 that effected amendments to the transportation element of the Eugene-Springfield Metropolitan Area General Plan (Metro Plan), related changes to the Plan text, and adopted revisions to TransPlan. Included in the text amendments was the addition of a new section entitled "Nodal Development Area (Node)," and inclusion of "ND - Nodal Development" to the text for the Legend Block on the Metro Plan Diagram. B. The Metro Plan, in describing the Nodal Development Area designation states that "[a]reas identified as nodal development areas in TransPlan are considered to have potential for this type of land use pattern." Page II-E-4. The TransPlan Map entitled Potential Nodal Development Areas identifies the Eugene Downtown Plan Area as an area for nodal development. See areas identified as l-E, 1-D and 1-F. C. Chapter IV of the Metro Plan sets forth procedures for amendment of the Metro Plan, which for the City of Eugene are implemented by the provisions of Chapter 9 of the Eugene Code, 1971 (EC). D. These proceedings have been initiated by the City of Eugene pursuant to procedures for amendment and refinement of the Metro Plan, which requires approval of the Eugene City Council for Type II Metro Plan diagram amendments located inside the incorporated city limits of Eugene. Since a revised Eugene Downtown Plan is being processed to concurrently redesignate property, the proceedings are following a Type V process. E. On May 16, 2003, notice of the proposed amendments was delivered to the Oregon Department of Land Conservation and Development as required by ORS 197.610. No comments were received in response to the notice. F. On May 30, 2003, notice of the Planning Commission hearing was mailed to all owners of property within the Eugene Downtown Plan area and within 300 feet of the Eugene Downtown Plan area, and was previously provided to neighborhood groups, and other interested parties. Notice was published in the Register-Guard, a daily newspaper of general circulation, on June 11, 2003. The notice included a description of all proposed actions and approval criteria. Ordinance- 1 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238kDowntown Plan Metro Plan Ordinance 1 (00072644)1.DOC(02/03/04) ORDINANCE NO. 1 G. After the July 1, 2003 public hearing, the Eugene Planning Commission recommended approval of the proposed measures. H. The Eugene City Council held a public heating on the request on January 26, 2004, and is now ready to take action on the requested amendments. J. Evidence exists within the record and the findings attached hereto that the proposal meets the requirements of Chapter 9 of the Eugene Code, 1971, and the requirements of applicable state and local law. NOW, THEREFORE, THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS: Section 1. The Metro Plan Diagram is amended to redesignate the Federal Courthouse site and adjacent City-owned property, identified as Map 17-03-32-22, Tax Lots 600, 700 and 701, from Heavy Industrial to Commercial, and to add the ND-Nodal Development designation to the properties located within the Eugene Downtown Plan area as identified and described on Exhibit A. The underlying designations for these ND Nodal Development properties shall remain unchanged. Section 2. The above findings, and the Legislative Findings set forth in Exhibit B attached hereto are adopted as findings in support of this Ordinance. Section 3. If any section, subsection, sentence, clause, phrase, or portion of this Ordinance is for any reason held invalid or unconstitutional by any court of competent jurisdiction, that portion shall be deemed a separate, distinct, and independent provision and that holding shall not affect the validity of the remaining portions of this Ordinance. Section 4. Notwithstanding the effective date of ordinances as provided in the Eugene Charter of 2002, this Ordinance shall become effective 30 days from the date of its passage by the City Council and approval by the Mayor, or upon the date of its acknowledgment as provided by ORS 197.625, whichever date is later. Passed by the City Council this Approved by the Mayor this __day of .,2004 __day of .,2004 City Recorder Mayor Ordinance - 2 C:kDocuments and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238kDowntown Plan Metro Plan Ordinance 1 (00072644)1.DOC(02/03/04) Metro Plan Diagram Amendm nts (~1 IA03-2 and MA03-3) Plan Designations ~ Major Retail/ND ~ Commercial/ND ~ Parks & Open Space/ND ~:~ High Density Residential/ND Properties to be redesignated from Heavy ~ High Density Residential ~ MU/ND Industrial to Commercial: Assessors Map: 17-03-32-22; Tax lots: 600, 701, and 702 ~ Medium Density Residential/ND (City of Eugene File Number MA 03-2) ~ Government & Education/ND -"~ ~'~~ ~7~ '"~ ~ Heavy Industrial/ND ~ ~ D Downtown Study Boundary ~ O The area within the Downtown Study Boundary ~~ ~~~~ ~ ~ ~ ~I ,s proposed for Nodal Development Area Designation (City of Eugene File Number MA 03-3) ExhibitA-2 Tax Lots Subject to Downtown Plan Nodal Development Designation MAP & TAX LOT MAP & TAX LOT 17-03-29-33 1300 17-03-31-1 ~ 1901 17-03-29-33 1400 17-03-31-11 2000 17-03-29-33 1500 17-03-31-11 2100 17-03-29-33 1600 17-03-31-11 2300 17-03-29-33 1800 17-03-31-11 2400 17-03-29-33 1900 17-03-31-11 2500 17-03-29-33 2000 17-03-31-11 2600 17-03-29-33 2700 17-03-31-11 2700 17-03-29-33 2800 17-03-31-11 2800 17-03-30-43 800 17-03-31-11 3200 17-03-30-43 900 17-03-31-11 3400 17-03-30-43 1000 17-03-31-11 3500 17-03-30-43 1100 17-03-31-11 3600 17-03-30-43 1200 17-03-31-11 3700 17-03-30-43 1300 17-03-31-11 3800 17-03-30-43 1400 17-03-31-11 4000 17-03-30-43 1701 17-03-31-11 4100 17-03-30-43 1702 17-03-31-11 4200 17-03-30-43 1704 17-03-31-11 4300 17-03-30-43 1705 17-03-31-11 4400 17-03-30-43 1800 17-03-31-11 4600 17-03-30-43 2200 17-03-31-11 4700 17-03-30-44 8500 17-03-31-11 4800 17-03-30-44 8900 17-03-31-11 4900 17-03-31-11 100 17-03-31-11 5100 17-03-31-11 300 17-03-31-11 7200 17-03-31-11 400 17-03-31-11 7500 17-03-31-11 500 17-03-31-11 7501 17-03-31-11 600 17-03-31-11 7600 17-03-31-11 800 17-03-31-11 7601 17-03-31-11 1100 17-03-31-11 7700 17-03-31-11 1200 17-03-31-11 8800 17-03-31-11 1300 17-03-31-11 9000 17-03-31-11 1400 17-03-31-11 9001 17-03-31-11 1500 17-03-31-11 9200 17-03-31-11 1600 17-03-31-11 9300 17-03-31-11 1700 17-03-31-11 9400 17-03-31-11 1900 17-03-31-11 9500 MAP & TAX LOT MAP & TAX LOT NUMBER NUMBER 17-03-31-11 10000 17-03-31-12 6200 17-03-31-11 10600 17-03-31-12 6300 17-03-31-11 12300 17-03-31-12 6400 17-03-31-11 12400 17-03-31-12 8000 17-03-31-11 12500 17-03-31-12 8100 17-03-31-11 12600 17-03-31-12 8200 17-03-31-11 12701 17-03-31-12 8400 17-03-31-11 12900 17-03-31-12 8401 17-03-31-11 13000 17-03-31-12 8500 17-03-31-11 13100 17-03-31-12 8501 17-03-31-11 13200 17-03-31-12 8502 17-03-31-11 13800 17-03-31-12 8600 17-03-31-11 13801 17-03-31-12 8700 17-03-31-11 14000 17-03-31-12 8800 17-03-31-12 100 17-03-31-12 9100 17-03-31-12 200 17-03-31-12 9200 17-03-31-12 300 17-03-31-12 9300 17-03-31-12 400 17-03-31-12 9400 17-03-31-12 600 17-03-31-12 9500 17-03-31-12 900 17-03-31-12 9600 17-03-31-12 1400 17-03-31-12 9700 17-03-31-12 1800 17-03-31-12 9800 17-03-31-12 4100 17-03-31-12 9900 17-03-31-12 4200 17-03-31-12 10000 17-03-31-12 4300 17-03-31-12 10100 17-03-31-12 4400 17-03-31-12 10200 17-03-31-12 4500 17-03-31-12 10300 17-03-31-12 4501 17-03-31-12 10400 17-03-31-12 4600 17-03-31-12 13300 17-03-31-12 4700 17-03-31-12 13400 17-03-31-12 4800 17-03-31-12 13500 17-03-31-12 4900 17-03-31-12 13600 17-03-31-12 5000 17-03-31-12 13700 17-03-31-12 5100 17-03-31-12 13800 17-03-31-12 5200 17-03-31-12 13900 17-03-31-12 5300 17-03-31-12 14000 17-03-31-12 ~ 5400 17-03-31-12 14100 17-03-31-12 5500 17-03-31-12 14200 17-03-31-12 5600 17-03-31-12 14300 17-03-31-12 6000 17-03-31-12 14400 17-03-31-12 6001 17-03-31-12 14500 17-03-31-12 6100 17-03-31-12 14600 MAP & TAX LOT MAP & TAX LOT NUMBER NUMBER 17-03-31-12 14700 17-03-31-13 2900 17-03-31-12 14800 17-03-31-13 3000 17-03-31-12 14900 17-03-31-13 3100 17-03-31-12 15000 17-03-31-13 3200 17-03-31-12 15100 17-03-31-13 3300 17-03-31-12 15200 17-03-31-13 3400 17-03-31-12 15201 17-03-31-13 3500 17-03-31-12 15202 17-03-31-13 3600 17-03-31-12 15300 17-03-31-13 3700 17-03-31-12 15400 17-03-31-13 3800 17-03-31-12 15500 17-03-31-13 3900 17-03-31-12 15600 17-03-31-13 4000 17-03-31-12 15601 17-03-31-13 4100 17-03-31-12 15602 17-03-31-13 4200 17-03-31-12 15800 17-03-31-13 4300 17-03-31-12 15900 17-03-31-13 4400 17-03-31-12 16000 17-03-31-13 4500 17-03-31-12 i 16100 17-03-31-13 4600 17-03-31-12 16800 17-03-31-13 4700 17-03-31-12 16801 17-03-31-13 4800 17-03-31-13 700 17-03-31-13 4900 17-03-31-13 900 17-03-31-13 5000 17-03-31-13 1000 17-03-31-13 5100 17-03-31-13 1100 17-03-31-13 5200 17-03-31-13 1200 17-03-31-13 5300 17-03-31-13 1300 17-03-31-13 5900 17-03-31-13 1400 17-03-31-13 6000 17-03-31-13 1500 17-03-31-13 6100 17-03-31-13 1600 17-03-31-13 6200 17-03-31-13 1700 17-03-31-13 6300 17-03-31-13 1800 17-03-31-13 6400 17-03-31-13 1900 17-03-31-13 6500 17-03-31-13 1901 17-03-31-13 6600 17-03-31-13 2000 17-03-31-13 6700 17-03-31-13 2100 17-03-31-13 6800 17-03-31-13 2200 17-03-31-13 6900 17-03-31-13 2300 17-03-31-13 7000 17-03-31-13 2400 17-03-31-13 7300 17-03-31-13 2500 17-03-31-13 7400 17-03-31-13 2600 17-03-31-13 7500 17-03-31-13 2700 17-03-31-13 7600 17-03-31-13 2800 17-03-31-13 7700 MAP & TAX LOT MAP & TAX LOT NUMBER NUMBER 17-03-31-13 7800 17-03-31-14 2900 17-03-31-13 7900 17-03-31-14 3300 17-03-31-13 8900 17-03-31-14 3900 17-03-31-13 9000 17-03-31-14 4000 17-03-31-13 9100 17-03-31-14 4100 17-03-31-13 9200 17-03-31-14 4200 17-03-31-13 13800 17-03-31-14 4300 17-03-31-13 13900 17-03-31-14' 4400 17-03-31-13 14000 17-03-31-14 4600 17-03-31-13 14100 17-03-31-14 4700 17-03-31-13 14200 17-03-31-14 4800 17-03-31-13 14300 17-03-31-14 4801 17-03-31-13 14400 17-03-31-14 4900 17-03-31-13 14500 17-03-31-14 5200 17-03-31-13 14600 17-03-31-14 5300 17-03-31-13 14700 17-03-31-14 5400 17-03-31-13 14800 17-03-31-14 5500 17-03-31-13 14900 17-03-31-14 5600 17-03-31-14 200 17-03-31-14 5700 17-03-31-14 400 17-03-31-14 5800 17-03-31-14 600 17-03-31-14 6200 17-03-31-14 700 17-03-31-14 6500 17-03-31-14 800 17-03-31-14 6600 17-03-31-14 900 17-03-31-14 6700 17-03-31-14 1000 17-03-31-14 6800 17-03-31-14 1100 17-03-31-14 6900 17-03-31-14 1300 17-03-31-14 7401 17-03-31-14 1400 17-03-31-14 7402 17-03-31-14 1500 17-03-31-14 7403 17-03-31-14 1600 17-03-31-14 7404 17-03-31-14 1700 17-03-31-14 7405 17-03-31-14 1800 17-03-31-14 7406 17-03-31-14 1900 17-03-31-14 7407 17-03-31-14 2000 17-03-31-14, 7500 17-03-31-14 2100 17-03-31-14 7600 17-03-31-14 2200 17-03-31-14 7700 17-03-31-14 2300 17-03-31-14 7800 17-03-31-14 2400 17-03-31-14 7801 17-03-31-14 2500 17-03-31-14 7900 17-03-31-14 2600 17-03-31-14 8000 17-03-31-14 2700 17-03-31-14 8100 17-03-31-14 2800 17-03-31-14 8200 MAP & TAX LOT MAP & TAX LOT NUMBER NUMBER 17-03-31-14 8300 17-03-31-41 4700 17-03-31-14 8400 17-03-31-41 4800 17-03-31-14 8401 17-03-31-41 4900 17-03-31-14 9100 17-03-31-41 5000 17-03-31-14 9200 17-03-31-41 5100 17-03-31-14 9300 17-03-31-41 5200 17-03-31-14 9500 17-03-31-41 5300 17-03-31-14 9600 17-03-31-41 5400 17-03-31-14 10000 17-03-31-41 5500 17-03-31-14 10100 17-03-31-41 5600 17-03-31-14 10200 17-03-31-41 5700 17-03-31-14 10300 17-03-31-41 5800 17-03-31-14 10400 17-03-31-41 5900 17-03-31-14 10700 17-03-31-41 6000 17-03-31-14 10800 17-03-31-41 6100 17-03-31-14 10900 17-03-31-41 6200 17-03-31-14 11000 17-03-31-41 6400 17-03-31-14 11200 17-03-31-41 6500 17-03-31-14 11300 17-03-31-41 6600 17-03-31-14 11400 17-03-31-41 6700 17-03-31-14 11500 17-03-31-41 6800 17-03-31-14 11600 17-03-31-41 6900 17-03-31-14 11700 17-03-31-41 7000 17-03-31-14 12000 17-03-31-41 7100 17-03-31-14 12100 17-03-31-41 7200 17-03-31-14 12300 17-03-31-41 7300 17-03-31-14 12500 17-03-31-41 7400 17-03-31-14 12600 17-03-31-41 9000 17-03-31-14 12700 17-03-31-41 9100 17-03-31-14 12800 17-03-31-41 9200 17-03-31-14 12900 17-03-31-41 9300 17-03-31-14 13000 17-03-31-41 9400 17-03-31-14 13100 17-03-31-41 9500 17-03-31-41 3800 17-03-31-41 9501 17-03-31-41 3900 17-03-31-41 9600 17-03-31-41 4000 17-03-31-41 9700 17-03-31-41 4100 17-03-31-41 9800 17-03-31-41 4200 17-03-31-41 9900 17-03-31-41 4300 17-03-31-41 10000 17-03-31-41 4400 17-03-31-41 101 O0 17-03-31-41 4500 17-03-31-41 10200 17-03-31-41 4600 17-03-31-41 10300 MAP & TAX LOT MAP & TAX LOT NUMBER NUMBER 17-03-31-41 10400 17-03-31-42 400 17-03-31-41 10500 17-03-31-42 700 17-03-31-41 10600 17-03-31-42 800 17-03-31-41 10700 17-03-31-42 900 17-03-31-41 10800 17-03-31-42 1000 17-03-31-41 10900 17-03-31-42 1100 17-03-31-41 11000 17-03-31-42 1200 17-03-31-41 11100 17-03-31-42 1300 17-03-31-41 11200 17-03-31-42 1400 17-03-31-41 11300 17-03-31-42 1500 17-03-31-41 11400 17-03-31-42 1600 17-03-31-41 11500 17-03-31-42 1700 17-03-31-41 13400 17-03-31-42 1800 17-03-31-41 13500 17-03-31-42 1900 17-03-31-41 13600 17-03-31-42 2000 17-03-31-41 13700 17-03-31-42 2100 17-03-31-41 13800 17-03-31-42 2200 17-03-31-41 13900 17-03-31-42 2300 17-03-31-41 14000 17-03-31-42 2400 17-03-31-41 14100 17-03-31-42 2500 17-03-31-41 14200 17-03-31-42 2600 17-03-31-41 14300 17-03-31-42 2601 17-03-31-41 14400 17-03-31-42 2700 17-03-31-41 14500 17-03-31-42 2800 17-03-31-41 14600 17-03-31-42 2900 17:03-31-41 14700 17-03-31-42 3000 17-03-31-41 14800 17-03-31-42 3100 17-03-31-41 14900 17-03-31-42 3200 17-03-31-41 15000 17-03-31-42 3300 17-03-31-41 15100 17-03-31-42 3400 17-03-31-41 15200 17-03-31-42 3500 17-03-31-41 15300 17-03-31-42 3600 17-03-31-41 15400 17-03-31-42 3700 17-03-31-41 15500 17-03-31-42 3800 17-03-31-41 15600 17-03-31-42 3900 17-03-31-41 15700 17-03-31-42 4000 17-03-31-41 15800 17-03-31-42 41 O0 17-03-31-41 15900 17-03-31-42 4200 17-03-31-41 16000 17-03-31-42 4300 17-03-31-42 100 17-03-31-42 4400 17-03-31-42 200 17-03-31-42 4501 17-03-31-42 300 17-03-31-42 4502 MAP & TAX LOT MAP & TAX LOT NUMBER NUMBER 17-03-31-42 4600 17-03-32-22 1300 17-03-31-42 4700 17-03-32-22 1400 17-03-31-42 4800 17-03-32-22 1500 17-03-31-42 4900 17-03-32-22 1600 17-03-31-42 5000 17-03-32-22 1700 17-03-31-42 5100 17-03-32-23 22 17-03-31-42 5200 17-03-32-23 1 O0 17-03-31-42 6900 17-03-32-23 200 17-03-31-42 7000 17-03-32-23 300 17-03-31-42 71 O0 17-03-32-23 400 17-03-31-42 7200 17-03-32-23 500 17-03-31-42 7300 17-03-32-23 600 17-03-31-42 7400 17-03-32-23 700 17-03-31-42 7500 17-03-32-23 800 17-03-31-42 7600 17-03-32-23 900 17-03-31-42 7700 17-03-32-23 1000 17-03-31-42 7800 17-03-32-23 1100 17-03-31-42 7900 17-03-32-23 1200 17-03-31-42 8000 17-03-32-23 1300 17-03-31-42 8100 17-03-32-23 1400 17-03-31-42 8200 17-03-32-23 1401 17-03-31-42 8300 17-03-32-23 1402 17-03-31-42 8400 17-03-32-23 ~ 1500 17-03-31-42 8500 17-03-32-23 1700 17-03-31-42 8600 17-03-32-23 1800 17-03-31-42 8700 17-03-32-23 1900 17-03-31-42 10700 17-03-32-23 2100 17-03-31-42 11600 17-03-32-23 2200 17-03-31-42 11700 17-03-32-23 2300 17-03-31-42 14400 17-03-32-23 2400 17-03-31-42 14500 17-03-32-23 2600 17-03-31-42 14600 17-03-32-23 2700 17-03-31-42 14700 17-03-32-23 2900 17-03-32-22 1 O0 17-03-32-23 3000 17-03-32-22 300 17-03-32-23 3001 17-03-32-22 400 17-03-32-23 3002 17-03-32-22 401 17-03-32-23 3003 17-03-32-22 500 17-03-32-23 3100 17-03-32-22 600 17-03-32-23 3300 17-03-32-22 700 17-03-32-23 3600 17-03-32-22 800 17-03-32-23 3800 17-03-32-22 11 O0 17-03-32-23 3900 MAP & TAX LOT MAP & TAX LOT NUMBER NUMBER 17-03-32-23 4000 17-03-32-23 9400 17-03-32-23 4100 17-03-32-23 9500 17-03-32-23 4200 17-03-32-23 9700 17-03-32-23 4300 17-03-32-23 9800 17-03-32-23 4400 17-03-32-23 9900 17-03-32-23 4500 17-03-32-23 10000 17-03-32-23 4600 17-03-32-23 10100 17-03-32-23 4700 17-03-32-23 10200 17-03-32-23 4900 17-03-32-23 5000 17-03-32-23 6100 17-03-32-23 6200 17-03-32-23 6400 17-03-32-23 6600 17-03-32-23 6601 17-03-32-23 6700 17-03-32-23 6800 17-03-32-23 6900 17-03-32-23 7000 17-03-32-23 7100 17-03-32-23 7200 17-03-32-23 7300 17-03-32-23 7400 17-03-32-23 7500 17-03-32-23 7600 17-03-32-23 7700 17-03-32-23 7800 17-03-32-23 7900 17-03-32-23 7901 17-03-32-23 8100 17-03-32-23 8200 17-03-32-23 8300 17-03-32-23 8400 17-03-32-23 8500 17-03-32-23 8600 17-03-32-23 8700 17-03-32-23 8800 17-03-32-23 8801 17-03-32-23 8900 17-03-32-23 9000 17-03-32-23 9200 17-03-32-23 9300 Exhibit B Metro Plan Diagram Amendments: Federal Courthouse District Downtown Plan Nodal Development Designation Findings demonstrating consistency of the proposed Metro Plan Amendments (Files MA 03-2 and MA 03-3) with EC 9.7730(3). CRITERIA FOR EVALUATING PROPOSED METRO PLAN AMENDMENT EC 9.7730(3)(a) The amendment must be consistent with the relevant statewide planning goals adopted by the Land Conservation and Development Commission; and EC 9.7730(3)(b)Adoption of the amendment must not make the Metro Plan internally inconsistent. EVALUATION OF PROPOSED METRO PLAN AMENDMENT EC 9.7730(3)(a) The amendment must be consistent with the relevant statewide planning goals adopted by the Land Conservation and Development Commission. Goal 1 - Citizen Involvement: To develop a citizen involvement program that insures the opportunity for citizens to be involved in all phases of the planning process. The City has acknowledged provisions for citizen involvement which ensure the opportunity for citizens to be involved in all phases of the planning process and set out requirements for such involvement. The action taken did not amend the citizen involvement program. The process for adopting these amendments complied with Goal 1 since it complied with, and surpassed the requirements of, the citizen involvement provisions. The Metro Plan amendment applications, MA 03-2 and MA 03-3, are subject to the public notification and hearing processes adopted by the City of Eugene in EC 9.7720 and 9.7735, as modified by the Eugene City Council under EC 9.7750(1), and in EC 9.7520. On May 16, 2003, the City delivered notice of the proposed Metro Plan amendments to the Department of Land Conservation and Development. On May 14, 2003, the application was referred to the City of Springfield and Lane County consistent with EC 9.7520(2) and 9.7720; as well as all neighborhood groups, and other interested parties. On May 30, 2003, notice was mailed to all owners and occupants of property within the Downtown Plan Area. Also on May 30, 2003, notice of the Metro Plan amendments was mailed to owners of property located within 300 feet of the Downtown Plan area. Notice of the Metro Plan amendments public hearing was published in the Register-Guard on June 11, 2003. The Planning Commission held a Public Hearing to consider the refinement plan adoption and Metro Plan amendments on July 1, 2003. Ordinance 1 Exhibit B - 1 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Intemet Files\OLK238~DTP CC Findings Ord 1.DOC(02/03/04) In addition, Planning Division staff met with the Historic Review Board on April 24, 2003 to present the draft Downtown Plan, and on May 22, 2003 to hear comments on the plan. On May 30, 2003, the draft Plan was presented at the Eugene City Club. Two public open houses on the Eugene Downtown Plan, and downtown financial tools were held, one on June 30, 2003 and one on December 6, 2003. Planning Commission held a series of work sessions to discuss these items on July 28, August 11 and September 8, before recommending approval on September 29, 2003. City Council held a duly noticed public hearing on January 26, 2004 to consider approval, modification, or denial of the amendments. The draft Downtown Plan and related materials remain available on the intemet through the City's web site. These processes afford ample opportunity for citizen involvement consistent with Goal 1. Therefore, the Metro Plan amendments are consistent with Statewide Planning Goal 1. Goal 2 - Land Use Planning: To establish a land use planning process and policy framework as a basis for all decision and actions related to use of land and to assure an adequate factual base for such decisions and actions. The record shows that there is an adequate factual base to support these plan amendments as Goal 2 requires. Further, the Goal 2 coordination requirement is met. Goal 2 requires that plans be coordinated with the plans of affected governmental units and that opportunities be provided for review and comment by affected governmental units. To comply with the Goal 2 coordination requirement, the City coordinated the review of these amendments with all affected governmental units. Specifically, notice was mailed to: Lane County, Springfield, City of Eugene; and the Department of Land Conservation and Development. There are no Goal 2 Exceptions required for this ordinance. Therefore, the Metro Plan amendments are consistent with Statewide Planning Goal 2. Goal 3 - Agricultural Land: To preserve and maintain agricultural lands. This Goal is not applicable to the proposed Plan amendments as the subject area and actions do not affect any agricultural plan designation or use. Therefore, this Goal is not relevant and these amendments do not affect Metro Plan compliance with Statewide Planning Goal 3. Goal 4 - Forest Land: To conserve forest lands by maintaining the forest land base and to protect the state's forest economy by making possible economically efficient forest practices that assure the continuous growing and harvesting of forest tree species as the leading use on forest land consistent with sound management of soil, air, water, and fish and wildlife resources and to provide for recreational opportunities and agriculture. This Goal is not applicable to the proposed Plan amendments as the subject area and actions do not affect any forest plan designation or use. Therefore, this Goal is not Ordinance 1 Exhibit B - 2 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) 1.DOC(02/03/04) relevant and these amendments do not affect Metro Plan compliance with Statewide Planning Goal 4. Goal 5 - Open Spaces, Scenic and Historic Areas, and Natural Resources: To conserve open space and protect natural and scenic resources. The comprehensive plan diagram changes do not create or amend the city's list of Goal 5 resources, do not amend a code provision adopted in order to protect a significant Goal 5 resource or to address specific requirements of Goal 5, do not allow new uses that could be conflicting uses with a significant Goal 5 resource site and do not amend the acknowledged UGB. Goal 6 - Air, Water and Land Resources Quality: To maintain and improve the quality of the air, water and land resources of the state. Goal 6 requires that all discharges from future development, when combined with discharges from existing development, shall not violate or threaten to violate state or federal environmental quality statues, rules and standards. Discharges under this Goal include all waste and other process discharges. It also requires that discharges within state designated area sheds and river basins not exceed the capacity of the air, water and land resources of those areas, degrade those resources or threaten the availability of those resources. These amendments to the Metro Plan diagram do not affect compliance with Goal 6. Goal 7 - Areas Subject to Natural Disasters and Hazards: To protect life and property from natural disasters and hazards. Goal 7 prohibits the planning of developments subject to damage, or that could result in loss of life in designated natural disaster or hazard areas, without appropriate safeguards. This Goal also requires evaluation of natural hazards that could result from new development. This Goal requires some consideration of the natural hazards associated with the proposed development at the time development approval is contemplated by the governing body. This Goal is being implemented by the City through various code sections. These amendments do not effect the City's restrictions on development in areas subject to natural disasters and hazards. Further, these amendments do not effect the City's code provisions requiring applicants seeking to develop property located in an area of potentially unstable soils and all applicants proposing to construct public improvements, to provide information to the City regarding any potential geological or geotechnical hazards related to the development site. Therefore, Goal 7 does not apply. Goal 8 - Recreational Needs: To satisfy the recreational needs of the citizens of the state and visitors and, where appropriate, to provide for the siting of necessary recreational facilities including destination resorts. Ordinance 1 Exhibit B - 3 C:~Documents and Settings\ceplnxl\Local Settings~Temporary Intemet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) 1.DOC(02/03/04) Goal 8 ensures provision of recreation facilities to the citizens of the state. The proposed redesignation will not impact provision of recreation facilities. The Downtown Plan area is served by a variety of parks including Alton Baker and Skinner Butte Parks. Access to the recreation opportunities provided by these parks will not be affected as a result of the proposed Metro Plan Amendments. Therefore, these amendments are consistent with Goal 8. Goal 9 - Economic Development: To provide adequate opportunities throughout the state for a variety of economic activities vital to the health, welfare, and prosperity of Oregon's citizens. The Administrative Rule for Statewide Planning Goal 9 (OAR 660, Division 9) requires cities to evaluate the supply and demand of commercial land relative to community economic objectives. The Eugene Commercial Land Study and the Metropolitan Industrial Lands Inventory and Policy Reports are acknowledged for their compliance with the requirements of Goal 9 and its Administrative Rule. The Metro Plan diagram amendment will increase the supply of available commercial land by approximately 8.5 acres, about half of which will be acquired by the General Services Administration for the new Federal Courthouse. This 8.5 acres was previously designated as industrial land, but since it was developed, it was not included in the area's supply of industrial lands for purposes of Goal 9. Application of the ND Nodal Development designation depicts an area as a nodal development area, but does not change the underlying Metro Plan diagram land use designation for the property or affect the uses allowed within the underlying designation. Application of the nodal development designation will not affect the ability of the City to provide adequate opportunities for a variety of economic activities. The application of the Nodal Development designation will therefore have no direct impact on the existing supply of on any existing commercially designated land. Therefore, the proposed Metro Plan amendment is consistent with Statewide Planning Goal 9. Goal 10 - Housing: To provide for the housing needs of citizens of the state. The Metro Plan amendment to redesignate the Courthouse site and adjacent city-owned property will not adversely impact the supply or availability of residential lands, since none of the affected properties are, or will be, designated for residential use. Application of the ND Nodal Development designation depicts an area as a nodal development area, but does not change the underlying Metro Plan diagram designation for the property or affect the uses allowed within the underlying designation. The proposed amendment enhances the provision of the housing needs of the community by encouraging additional housing opportunities based on nodal development principles. Ordinance 1 Exhibit B - 4 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2)1.DOC(02/03/04) Therefore, the proposed Metro Plan amendments are consistent with Statewide Planning Goal 10. Goal 11 - Public Facilities and Services: To plan and develop a timely, orderly and efficient arrangement of public facilities and services to serve as a framework for urban and rural development. The Downtown Plan area is located in the city limits and is served by public facilities in which the existing level of service is adequate to serve the needs of existing and future development. Therefore, the proposed Metro Plan amendments are consistent with Statewide Planning Goal 11. Goal 12 - Transportation: To provide and encourage a safe, convenient and economic transportation system. Goal 12 is implemented through the Transportation Planning Rule (TPR, OAR 660-012). The Eugene-Springfield Metropolitan Area Transportation Plan (TransPlan) provides the regional policy framework through which the TPR is enacted at the local level. TransPlan was acknowledged for compliance with Goal 12 in 2001. Under the state TPR, a local government must provide a form of mitigation described in OAR 660-012-0060(1) when the local government adopts amendments to land use regulations which significantly affect a transportation facility. A land use regulation amendment "significantly affects a transportation facility" if it meets one of the following four factors identified in 660-012-0060(2): (a) Changes the functional classification of an existing or planned transportation facility; The proposed Metro Plan amendments do not change the functional classification of any transportation facility. (b) Changes standards implementing a functional classification system; The proposed Metro Plan amendments do not change the standards for implementing a functional classification system. (c) Allows types or levels of land uses which would result in levels of travel or access which are inconsistent with the functional classification of a transportation facility; or The proposed Metro Plan amendments do not allow types or levels of uses which would result in levels of travel or access which are inconsistent with the functional classification of a transportation facility. Ordinance 1 Exhibit B - 5 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Intemet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) 1.DOC(02/03/04) (d) Would reduce the performance standards of the facility below the minimum acceptable level identified in the TSP. The proposed Metro Plan amendments will not reduce the performance standards of any facility below the minimum acceptable level identified in TransPlan. The proposed Commercial Metro Plan designation will not significantly affect existing transportation facilities. Currently the Courthouse site is designated Heavy Industrial. Redesignation to Commercial will allow land uses with different development densities and transportation needs, but will not result in reduced performance standards for affected transportation facilities. The City compared trip generation for a variety of a variety of different development scenarios on the city-owned site adjacent to the site under development for the new Federal Courthouse. These scenarios assume that the Federal Courthouse will be constructed on approximately half of the property currently owned by the City. It is reasonable to assume that the Federal Courthouse site will be used for the stated purpose of building a Federal Courthouse. This assumption is substantiated by the federal allocation of designated money, lengthy condemnation and purchase negotiations, the expense and detail of the design process, and the demolition and construction contracts for the same purpose. Assuming a "worst case" scenario, with the maximum number of trips generated by potential new commercial development on the remaining city-owned site, and subtracting trips generated by existing or former uses, total new daily trips could amount to 5,945, with 530 in the AM peak time and 885 in the PM peak. This analysis shows that the existing transportation facilities are adequate to serve this amount of new development on the remainder of the site with acceptable levels of service. The new Federal Courthouse, which will occupy approximately half of.the 8.5 acres site, will be a land intensive use with relatively few employees (estimated at 270), as compared to employment intensive uses allowed in Industrial or Commercial lands. In addition, very few parking spaces, approximately 80, will be provided for employees at the Courthouse. The proposed transportation improvements planned in conjunction with the Courthouse will improve the transportation facilities in this immediate area, particularly for pedestrians. These improvements include the 6th Avenue Extension, portions of Ferry Street and 8th Avenue, and a signalized intersection at 8th and Mill. These improvements are discussed in the text of The Central Area Transportation Study (CATS). CATS will be subject of a separate public hearing and review process. The proposed Metro Plan amendments are therefore found to be consistent with OAR 660-012-0060(2); no mitigation is required relative to OAR 660-012-0060(1). Ordinance 1 Exhibit B - 6 CSDocuments and Settings\ceplnxl~Local Settings\Temporary Intemet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) 1.DOC(02/03/04) Moreover, in determining whether proposed land uses would affect or be consistent with planned transportation facilities, the OAR's set out certain automatic credits for reduction in vehicle trips for developments in "mixed-use, pedestrian-friendly centers, and neighborhoods." The addition of the "ND Nodal Development" Metro Plan Diagram designation identifies the downtown area, our central business district, as a nodal development, transit-oriented/pedestrian district. This designation enables the City to qualify for this state credit in reduction of vehicle miles traveled, in further compliance with the State Transportation Planning Rule. Therefore, the proposed amendments are consistent with Statewide Planning Goal 12. Goal 13 - Energy Conservation: To conserve energy. The Metro Plan diagram amendments do not specifically impact energy conservation, except to encourage compact urban development within downtown. The Nodal Development concept supports compact urban level development, efficient transportation systems, and use of alternative modes of transportation. The amendments are consistent with Statewide Planning Goal 13. Goal 14 - Urbanization: To provide for an orderly and efficient transition from rural to urban land use. No property is being converted from rural to urban land use. For all the properties affected by these amendments, all necessary urban services are in place. Therefore, both amendments are consistent with statewide planning Goal 14. Goal 15 - Willamette River Greenway: To protect, conserve, enhance and maintain the natural, scenic, historical, agricultural, economic and recreational qualities of lands along the Willamette River as the Willamette River Greenway. The Metro Plan designates all areas adjacent to the Willamette River for Goal 15 protection. The Eugene Land Use Code requires that, prior to the intensification of use, change in use or development occurring on lands lying within the designated Willamette Greenway boundaries, the City must approve a Willamette Greenway Permit. Sections 9.8800 through 9.8825 of the Eugene Code govern the Willamette Greenway Permit process and specifically implement the requirements of Goal 15. These amendments do not effect the requirement that lands lying within the Greenway boundaries must obtain a Willamette Greenway Permit, nor do these amendments change the permit approval criteria. Further, these amendments do not affect the boundaries of the Willamette River Greenway established by Eugene City Council Resolution No. 2592. Goals 16 through 19 (Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean Resources): Ordinance 1 Exhibit B - 7 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) 1.DOC(02/03/04) There are no coastal, ocean, estuarine, or beach and dune resources related to the property or involved in the amendment. Therefore, Statewide Planning Goals 16 through 19 do not apply. The above findings demonstrate that the proposed Metro Plan amendments are consistent with all relevant statewide planning goals. EC 9.7730(3)(b) Adoption of the amendment must not make the Metro Plan internally inconsistent. The proposed Metro Plan diagram amendments are consistent with the remainder of the Metro Plan. No text or other diagram changes are necessary for consistency with this amendment; adoption of these amendments will not make the Metro Plan internally inconsistent. The Metro Plan diagram currently designates the Downtown Plan area for a variety of land uses. The proposed ND designation within the Downtown Plan area on the Metro Plan Land Use Diagram does not affect these base designations. The ND designation will essentially be an overlay to the base land use designation. As such, the diagram amendment will serve to augment the current designation by enabling the use of additional implementation tools to guide development consistent with adopted nodal development policies within the Metro Plan, as follows: Apply the nodal development strategy in areas selected by each jurisdiction that have identified potential for this type of transportation- efficient land use pattern (#F. 1, page III-F-4). Provide for transit-supportive land use patterns and development, including higher intensity, transit-oriented development along major transit corridors and near transit stations; medium and high-density residential development within ~ mile of transit stations, major transit corridors, employment centers, and downtown areas; and development and redevelopment in designated areas that are or could be well served by existing or planned transit (#F.3, page III-F-5). Within three years of TransPlan adoption, apply the ND Nodal Development designation to areas selected by each jurisdiction, adopt and apply measures to protect designated nodes from incompatible development, and adopt a schedule for completion of nodal plans and implementing ordinances (#F.5, page III-F-5). Other relevant Metro Plan Policies address the conversion of industrially designated land to a non-industrial designation. Discourage future Metropolitan Area General Plan amendments that would change development-ready industrial lands (sites defined as short- Ordinance 1 Exhibit B - 8 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Intemet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) I.DOC(02/03/04) term in the Metropolitan Industrial Lands Special Study, 1991) to non- industrial designations (#12, page III-B-5). This site is not listed as "short-term" in The Metropolitan Industrial Lands Study. Provide existing industrial activities sufficient adjacent land for future expansion (#5, page III-B-5). No expansion of an existing use was required at this site. The industrial use in the location had already closed on its own, due to separate economic factors, specifically the Chapter 11 Bankruptcy proceedings involving Agripac, the former owner of the site. The industrial designation is not necessary for the Federally initiated Courthouse development. The remainder of the site is no longer appropriate for heavy industrial uses, since it will be located adjacent to the new Courthouse, and in close proximity to the EWEB property on the riverfront. The proposed commercial designation on the city- owned parcel will permit employment and development opportunities more compatible with nearby land uses and activities in the downtown core. The addition of the "ND Nodal Development" Metro Plan Diagram designation also implements policy direction in TransPlan, TransPlan Land Use Policies 1 and 5, which were also adopted as Metro Plan Transportation Policies F-1 and F-5, specifically relate to nodal development, as listed below: Land Use Policy 1: Apply the nodal development strategy in areas selected by each jurisdiction that have identified potential for this type of transportation efficient land use pattern. The Downtown Plan Area is identified as a potential node on the TransPlan Potential Nodal Development Areas (Appendix A map). The Metro Plan amendment facilitates the application of the nodal development strategy outlined in the policy above, by applying the/ND Nodal Development plan designation to property within the Downtown Plan area. Land Use Policy 5: Within three years of TransPlan adoption, apply the ND, Nodal Development designation to areas selected by each jurisdiction, adopt and apply measures to protect designated nodes from incompatible development and adopt a schedule for completion of nodal development plans and implementing ordinances. The Metro Plan amendment specifically addresses this policy by applying the ND, Nodal Development plan diagram designation to the Downtown Plan area. The amendment is within the timeline specified in the policy. In addition, policies in the Downtown Plan support mixed uses, increased densities, and a network of walkable streets in the plan area- all characteristic of nodal development. Ordinance 1 Exhibit B - 9 CSDocuments and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) 1.DOC(02/03/04) Staff Conclusion for Proposed Metro Plan Amendments (MA 03-2 and MA 03-3) Based on thc preliminary findings contained herein, staff concludes that thc' proposed Metro Plan amendments arc consistent with the relevant criteria in EC 9.7730(3). Ordinance 1 Exhibit B- 10 CSDocuments and Settings\ceplnxl~Local Settings\Temporary Intemet Files\OLK238\Ordinance 1 - Findings - Exhibit B (00065096-2) 1.DOC(02/03/04) ATTACHMENT C ORDINANCE NO. 2 ORDINANCE NO. AN ORDINANCE ADOPTING A NEW EUGENE DOWNTOWN PLAN AS A REFINEMENT OF THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL PLAN; REPEALING RESOLUTION NO. 3882 AND THE EUGENE DOWNTOWN PLAN ADOPTED THEREIN; AMENDING SECTION 9.9540 OF THE EUGENE CODE, 1971; ADOPTING A SEVERABILITY CLAUSE; AND PROVIDING AN EFFECTIVE DATE. The City Council of the City of Eugene finds that: A. The current Eugene Downtown Plan was adopted by Resolution No. 3882 on October 31, 1984 as a refinement to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan). B. In 2000 a Committee for Greater Downtown Visioning was appointed by the City Council and charged with developing a vision for downtown. The Vision for Greater Downtown Eugene that emerged from this Committee was approved by the City Council in 2001, and City staff was directed to use that as the basis for developing an updated Eugene Downtown Plan. C. In January 2002, Mayor Torrey appointed Councilors Bettman, Meisner and Nathanson to join with the City Planning Commission to form the Downtown Plan Update Committee. Since that time the Committee has held a series of work sessions on key elements of the updated Eugene Downtown Plan, including land use, the future courthouse area, and economic tools and incentives. A preliminary draft of the updated Eugene Downtown Plan was reviewed by the Committee and released for public review on May 6, 2003. D. The updated Eugene Downtown Plan will provide long-range direction for future development, improvements, and activities in the downtown area, and will replace the 1984 Eugene Downtown Plan as a refinement to the Eugene-Springfield Metropolitan Area General Plan. E. On May 14, 2003 the updated Eugene Downtown Plan was referred to the City of Springfield, Lane County, all neighborhood groups, and other interested parties. Notice of the proposed Plan adoption was delivered by the City to the Land Conservation and Development Commission on May 16, 2003, and on May 30, 2003 notice was mailed to all owners and occupants of property within the Eugene Downtown Plan area and within 300 feet of the Eugene Downtown Plan area. The draft Plan was also presented at the Eugene City Club on May 30, 2003. Notice of the Planning Commission public hearing was published in the Register Guard on June 11,2003. Ordinance- 1 C:\Documents and Settings\ceplnxl\My Documents\My Documents\Downtown Plan\DTP CC Ordinance. DOC(02/04/04) ORDINANCE NO. 2 F. In addition to the above, City Planning Division staff presented the draft Plan to the Historic Review Board on April 24, 2003, and met with the Board again on May 22, 2003 to hear comments on the proposed Plan. Two public open houses on the Eugene Downtown Plan and downtown financial tools were held, one on June 30, 2003 and one on December 6, 2003. The draft Eugene Downtown Plan and related materials have been made available on the internet through the City's web site. G. Based on the public testimony received, and the recommendations of the City's Planning Commission, Planning Division staff, and Historic Review Board, the City Council finds that the 2003 Eugene Downtown Plan is consistent with the Eugene- Springfield Metropolitan Area General Plan, other adopted City policies, and the *Statewide Planning Goals. Resolution No. 3882, and the Eugene Downtown Plan adopted therein should be repealed, and the Eugene Downtown Plan Policies set forth in Section 9.9540 of the Eugene Code, 1971 should be amended as hereinafter set forth. THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS: Section 1. Resolution No. 3882, and the Eugene Downtown Plan adopted therein, is hereby repealed, as of the effective date of this Ordinance. Section 2. Based on the above findings, and the legislative findings attached hereto as Exhibit A, which are adopted in support of this Ordinance, the Policies set forth in the textual version of the Eugene Downtown Plan a copy of which is attached hereto as Exhibit B are hereby adopted as a refinement of the Eugene-Springfield Metropolitan Area General Plan for the Downtown Plan Area. A final copy of the complete Eugene Downtown Plan shall be attached to this Ordinance. Section 3. The implementation strategies in the Eugene Downtown Plan are recognized as ways in which to implement the policies, but they are not adopted as City policy. Section 4. Section 9.9540 of the Eugene Code, 1971, is amended to provide: 9.9540 Eugene Downtown Plan Policies. A master plan for the EWEB riverfront property must be approved by the city before any redevelopment, land use application, rezoning, Metro Plan or refinement plan diagram amendments are approved for uses not associated with EWEB functions. The master plan shall be evaluated based on the master plan's consistency with principles (1) through (4) below: (1) Create a "people place" that is active, vibrant, accessible and multi-use. (2) Provide appropriate setbacks, deeper where environmental or habitat issues are more critical, shallower in other areas. Ordinance - 2 C:\Documents and Settings\ceplnxl\My Documents\My Documents\Downtown Plan\DTP CC Ordinance. DOC(02/04/04) ORDINANCE NO. 2 (3) Incorporate appropriate building and site design techniques that address environmental concerns. (4) Incorporate an educational aspect, so that the riverfront improvements teach us about our river, our history and our city. The master plan shaft be considered using the City's Type II application procedures, unless the applicant elects to have the master plan reviewed concurrently with a Type III, Type IV or Type V application. (Policy 3) .v,~,,..~,,. ~,,~ ..,,~,~.~ ~,.~ ~..,,LV ,, ~ ~,..~] L~ ~,V~ ~ ~ ,,,~j~, .. . ~.,~] ~/ ~/ .......................... ~ ................ SOPF'C~S .~ ~ ........ ~n~: :r~ N~l~mm~n+o ~;f~ ~;ol ,~11~, ohm, ,l~+;n~ ~;~,;+~, ~n +h~ ~,~,,~ ,, . %, ,, ~, ,~/ of Ordinance - 3 C:\Documents and Settings\ceplnxl\My Documents\My Documents\Downtown Plan\DTP CC Ordinance,DOC(02/04/04) ORDINANCE NO. 2 ~n~r~;n~ , ,D~o /~1;~ ~''""~'"~] ~ ~ '~, ~,,~ ~,~] ~v v~. %, ~,,v] , / or Improve sep/:ces m m~m the -~-~* ~* ~ ..... * ..... ,* ~l~rl,, ~,~,,~,,. ~, ~,,~ ,~/ i~l I~ ~l IV ~lll[~ VI [I V ~IV~I~ IV [~V [ ~ Vl,JV] ~ V ~V I Vlll I ~v..,l~V..,l ~,,~ v~,,Vl ll,~Jv, ~V~lV,~] VVl,~I~. %, VllV] ~ ~''~'''~ Il ,,lll ~V.~I,~V..ll. %' VllV] ........... ~ ........ ~:ZC O[ ~ll~ ll,~ll. %' Vll~] V~ /D~llm~ , ..... , ~)] Section 5. The City Recorder, at the request of, or with the concurrence of the City Attorney, is authorized to administratively correct any reference errors contained herein or in other provisions of the Eugene Code, 1971, to the provisions added, amended or repealed herein. Section 6. If any section, subsection, sentence, clause, phrase or portion of this Ordinance is for any reason held invalid or unconstitutional by a court of competent jurisdiction, such portion shall be deemed a separate, distinct and independent provision and such holding shall not affect the validity of the remaining portions hereof. Ordinance - 4 C:\Documents and Settings\ceplnxl\My Documents\My Documents\Downtown Plan\DTP CC Ordinance. DOC(02/04/04) ORDINANCE NO. 2 Section 7. Notwithstanding the effective date of ordinances as provided in the Eugene Charter of 2002, this Ordinance shall become effective 30 days from the date of its passage by the City Council and approval by the Mayor, or upon the date of its acknowledgment as provided by ORS 197.625, whichever date is later. Passed by the City Council this Approved by the Mayor this day of ,2004 __ day of ,2004 City Recorder Mayor Ordinance - 5 C:\Documents and Settings\ceplnxl\My Documents\My Documents\Downtown Plan\DTP CC Ordinance. DOC(02/04/04) Exhibit A Eugene Downtown Plan Refinement Plan Adoption, RA 03-2 Land Use Code Amendment, CA 03-3 Findings demonstrating consistency of the proposed refinement plan adoption, Eugene Downtown Plan (File RA 03-3) with EC 9.8424, and the proposed Land Use Code Amendment (File CA 03-3) with EC 9.8065 CRITERIA FOR EVALUATING PROPOSED REFINEMENT PLAN ADOPTION 9. 8424(1) The Refinement Plan amendment is consistent with all of the following: (a) Statewide planning goals. (b) Applicable provisions of the Metro Plan. (c) Remaining portions of the Refinement Plan. 9. 8424(2) The Refinement Plan amendment addresses one or more of the following: (a) An error in the publication of the Refinement Plan. (b) New inventory material which relates to a statewide planning goal. (c) New or amended community policies. (d) New or amended provisions in a federal law or regulation, state statute, state regulations, statewide planning goal, or state agency land use plan. (e) A change of circumstances in a substantial manner that was not anticipated at the time the refinement plan was adopted. EVALUATION OF PROPOSED REFINEMENT PLAN ADOPTION EC 9.8424(1) The Refinement Plan amendment is consistent with all of the following: (a) Statewide planning goals. Goal 1 - Citizen Involvement: To develop a citizen involvement program that insures the opportunity for citizens to be involved in all phases of the planning process. The City has acknowledged provisions for citizen involvement which ensure the opportunity for citizens to be involved in all phases of the planning process and set out requirements for such involvement. The action taken did not amend the citizen involvement program. The process for adopting these amendments complied with Goal 1 since it complied with, and surpassed the requirements of, the citizen involvement provisions. The refinement plan adoption is subject to the public notification and hearing processes adopted by the City of Eugene in EC 9.7720 and 9.7735, as modified by the Eugene City Council under EC 9.7750(1), and in EC 9.7520. On May 16, 2003, the City delivered a notice of the proposed refinement plan adoption to the Department of Land Conservation Exhibit A - Ordinance 2 - 1 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238~DTP CC Findings Ord 2.DOC (02/02/04) and Development. On May 10, 2003, the application was referred to the City of Springfield and Lane County as well as all neighborhood groups, and other interested parties. On May 30, 2003, notice was mailed to all owners and occupants of property within the Downtown Plan area. Also on May 30, 2003, notice of the refinement plan adoption was mailed to owners of property located within 300 feet of the Downtown Plan area. Notice of the refinement plan adoption public hearing was published in the Register-Guard on June 11, 2003. The Planning Commission held a Public Hearing to consider the refinement plan adoption and Metro Plan amendments on July 1, 2003. In addition, Planning Division staff met with the Historic Review Board on April 24, 2003 to present the draft Downtown Plan, and on May 22, 2003 to hear comments on the plan. On May 30, 2003, the draft Plan was presented at the Eugene City Club. Two public open houses on the Downtown Plan, and downtown financial tools were held, one on June 30, 2003 and one on December 6, 2003. Planning Commission held a public hearing on the Downtown Plan and related amendments on July 1, 2003. Planning Commission held a series of work sessions to discuss these items on July 28, August 11 and September 8, before recommending approval on September 29, 2003. City Council held a duly noticed public hearing on January 26, 2004 to consider approval, modification, or denial of these items. The development and review of the draft Downtown Plan adhered to the plan approved for this project on October 10, 2001 by the Citizen Involvement Committee. The draft Downtown Plan and related materials remain available on the intemet through the City's web site. These processes afford ample opportunity for citizen involvement consistent with Goal 1. Therefore, the refinement plan adoption and related code amendments are consistent with Statewide Planning Goal 1. Goal 2 - Land Use Planning: To establish a land use planning process and policy framework as a basis for all decision and actions related to use of land and to assure an adequate factual base for such decisions and actions. The record shows that there is an adequate factual base to support the adoption of an updated Downtown Plan and related code amendments as Goal 2 requires. Further, the Goal 2 coordination requirement is met. Goal 2 requires that plans be coordinated with the plans of affected governmental units and that opportunities be provided for review and comment by affected governmental units. To comply with the Goal 2 coordination requirement, the City coordinated the review of the updated plan with all affected governmental units. Specifically, notice was mailed to Lane County, Springfield, City of Eugene; and the Department of Land Conservation and Development. There are no Goal 2 Exceptions required for this ordinance. Therefore, adoption of the refinement plan and the related code amendments is consistent with Statewide Planning Goal 2. Goal 3 - Agricultural Land: To preserve and maintain agricultural lands. Exhibit A - Ordinance 2 - 2 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) This Goal is not applicable as the subject area and actions do not affect any agricultural plan designation or use. Therefore, this Goal is not relevant and the refinement Plan adoption does not affect Metro Plan compliance with Statewide Planning Goal 3. Goal 4 - Forest Land: To conserve forest lands by maintaining the forest land base and to protect the state's forest economy by making possible economically efficient forest practices that assure the continuous growing and harvesting of forest tree species as the leading use on forest land consistent with sound management of soil, air, water, and fish and wildlife resources and to provide for recreational opportunities and agriculture. This Goal is not applicable as the subject area and actions do not affect any forest plan designation or use. Therefore, this Goal is not relevant and the refinement Plan adoption does not affect Metro Plan compliance with Statewide Planning Goal 4. Goal 5 - Open Spaces, Scenic and Historic Areas, and Natural Resources: To conserve open space and protect natural and scenic resources. The adoption of the Eugene Downtown Plan and the related code amendment do not create or amend the city's list of Goal 5 resources, do not amend a code provision adopted in order to protect a significant Goal 5 resource or to address specific requirements of Goal 5, do not allow new uses that could be conflicting uses with a significant Goal 5 resource site and do not amend the acknowledged UGB. While the acknowledged Goal 5 inventory for the Eugene-Springfield Metropolitan area identifies significant Goal 5 resources within the Willamette River Greenway that are included in the Plan boundaries, the acknowledged Goal 5 protective measures for those areas will not be affected by the Plan and code provisions. The plan and code amendments do not allow any new uses. Further, development within the Willamette Greenway will still be subject to a Type III application procedure as provided for in the City of Eugene's Land Use Code (Chapter 9 of the Municipal Code). Refer to EC 9.7300 - 9.7340; EC 9.880 - 9.8825. In addition to those resources identified on the Goal 5 maps, there are Goal 5 historic properties within the Downtown Plan area. The text of the Downtown Plan recognizes the importance of these properties, and encourages their protection and continued use. It does not change any of the acknowledged protective measures that apply to those properties. The refinement plan adoption and related code changes are consistent with Statewide Planning Goal 5. Goal 6 - Air, Water and Land Resources Quality: To maintain and improve the quality of the air, water and land resources of the state. Exhibit A - Ordinance 2 - 3 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) Goal 6 requires that all discharges from future development, when combined with discharges from existing development, shall not violate or threaten to violate state or federal environmental quality statues, rules and standards. Discharges under this Goal include all waste and other process discharges. It also requires that discharges within state designated area sheds and river basins not exceed the capacity of the air, water and land resources of those areas, degrade those resources or threaten the availability of those resources. The adoption of the Downtown Plan and the related code amendments does not affect compliance with Goal 6. Goal 7 - Areas Subject to Natural Disasters and Hazards: To protect life and property from natural disasters and hazards. Goal 7 prohibits the planning of developments subject to damage, or that could result in loss of life in designated natural disaster or hazard areas, without appropriate safeguards. This Goal also requires evaluation of natural hazards that could result from new development. This Goal requires some consideration of the natural hazards associated with the proposed development at the time development approval is contemplated by the governing body. This Goal is being implemented by the City through various code sections. The adoption of the Downtown Plan and the related code amendments does not effect the City's restrictions on development in areas subject to natural disasters and hazards. Further, the adoption and amendments do not effect the City's code provisions requiring applicants seeking to develop property located in an area of potentially unstable soils and all applicants proposing to construct public improvements, to provide information to the City regarding any potential geological or geotechnical hazards related to the development site. Therefore, Goal 7 does not apply. Goal 8 - Recreational Needs: To satisfy the recreational needs of the citizens of the state and visitors and, where appropriate, to provide for the siting of necessary recreational facilities including destination resorts. Goal 8 ensures provision of recreation facilities to the citizens of the state. The refinement plan adoption and code amendments address this Goal, since the Downtown Plan recognizes and encourages downtown as a cultural and entertainment center for the City. The Downtown Plan also recognizes the importance of nearby open space areas, including Alton Baker Park and Skinner Butte Park. Enhanced access to the recreation opportunities provided by these parks in encouraged by the Plan. Therefore, the refinement plan adoption and the related code amendments are consistent with Statewide Planning Goal 8. Goal 9 - Economic Development: To provide adequate opportunities throughout the state for a variety of economic activities vital to the health, welfare, and prosperity of Oregon's citizens. Exhibit A - Ordinance 2 - 4 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) The Administrative Rule for Statewide Planning Goal 9 (OAR 660, Division 9) requires cities to evaluate the supply and demand of commercial and industrial land relative to community economic objectives. The Eugene Commercial Land Study and the Metropolitan Industrial Lands Inventory and Policy Reports are acknowledged for their compliance with the requirements of Goal 9 and its Administrative Rule. The Downtown Plan supports density and intensity of commercial uses downtown. The Downtown Plan specifically addresses the need to capitalize on development opportunities, and supports the strategic use of financial tools to assist appropriate development in downtown. Neither the Plan nor the code amendments reduce or increase the supply of commercial or industrial land. Therefore, their adoption is consistent with Statewide Planning Goal 9. Goal 10 - Housing: To provide for the housing needs of citizens of the state. The Downtown Plan specifically encourages a variety of housing and homeownership opportunities in the downtown core and on the edges of the Downtown Plan area. The Plan supports the strategic use of financial tools to assist housing development in these locations. The Plan does not reduce or increase the supply of residential land. Therefore, the refinement plan adoption is consistent with Statewide Planning Goal 10. Goal 11 - Public Facilities and Services: To plan and develop a timely, orderly and efficient arrangement of public facilities and services to serve as a framework for urban and rural development. The Downtown Plan area is located in the city limits and is served by public facilities in which the existing level of service is adequate to serve the needs of existing and future development. Therefore, the refinement plan adoption is consistent with Statewide Planning Goal 11. Goal 12 - Transportation: To provide and encourage a safe, convenient and economic transportation system. Goal 12 is implemented through the Transportation Planning Rule (TPR, OAR 660-12). TransPlan Goal 12 is implemented through the Transportation Planning Rule (TPR, OAR 660-12). TransPlan provides the regional policy framework through which the TPR is enacted at the local level. The Downtown Plan supports a safe, convenient and economic transportation system and is consistent with statewide planning Goal 12. The Central Area Transportation Study (CATS) is the transportation implementation strategy for the Downtown Plan. CATS will be subject of a separate public hearing and review process. The Transportation Planning Rule (OAR 660-012-0060) requires assurances that amendments to functional plans, acknowledged comprehensive plans, and land use regulations which significantly affect a transportation facility shall assure that allowed Exhibit A - Ordinance 2 - 5 CSDocuments and Settings\ceplnxl\Local Settings\Temporary Intemet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) land uses are consistent with the identified function, capacity, and performance standards (e.g. level of service, volume to capacity ratio, etc.) of the facility. A plan or land use regulation amendment significantly affects a transportation facility if it: (a) Changes the functional classification of an existing or planned transportation facility; (b) Changes standards implementing a functional classification system; (c) Allows types or levels of land uses which would result in levels of travel or access which are inconsistent with the functional classification of a transportation facility; or (d) Would reduce the performance standards of the facility below the minimum acceptable level identified in the TSP. The Downtown Plan and related code amendments will not significantly affect a transportation facility since they do none of the things described in (a) - (d), above. Four streets are proposed to be characterized as "Great Streets:" Broadway, Willamette, Fifth Avenue and Eighth Avenue. The Plan proposes that design standards and guidelines be drafted for each street to emphasize pedestrian amenities, and to attract pedestrian friendly development, in an effort to create a "walkable" downtown. No change in the functional classification of these streets is intended to result from this Plan. In addition, no changes are proposed to the standards that implement the functional classification system. The Plan does not, by its adoption, allow types or levels of land uses which would result in inconsistencies with the functional classification of a transportation facility, or reduce the performance standards of the facility. Therefore, the proposed refinement plan adoption is consistent with Statewide Planning Goal 12. Goal 13 - Energy Conservation: To conserve energy. The Downtown Plan supports compact urban level development and coordination with transit connectivity and alternate modes. Therefore, the refinement plan adoption and code amendments are consistent with Statewide Planning Goal 13. Goal 14 - Urbanization: To provide for an orderly and efficient transition from rural to urban land use. No property is being converted from rural to urban land use. For all the properties affected by these amendments, all necessary urban services are in place. Therefore, the refinement plan adoption and code amendments are consistent with statewide planning Goal 14. Exhibit A - Ordinance 2 - 6 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) Goal 15 Willamette River Greenway: To protect, conserve, enhance and maintain the natural, scenic, historical, agricultural, economic and recreational qualities of lands along the Willamette River as the Willamette River Greenway. The Metro Plan designates all areas adjacent to the Willamette River for Goal 15 protection. The Eugene Land Use Code requires that, prior to the intensification of use, change in use or development occurring on lands lying within the designated Willamette Greenway boundaries, the City must approve a Willamette Greenway Permit. Sections 9.8800 through 9.8825 of the Eugene Code govern the Willamette Greenway Permit process and specifically implement the requirements of Goal 15. This Refinement Plan and code amendments do not effect the requirement that lands lying within the Greenway boundaries must obtain a Willamette Greenway Permit, nor do they change the permit approval criteria. Further, they do not affect the boundaries of the Willamette River Greenway established by Eugene City Council Resolution No. 2592. Goals 16 through 19 (Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean Resources): There are no coastal, ocean, estuarine, or beach and dune resources related to the property or involved in the amendment. Therefore, Statewide Planning Goals 16 through 19 do not apply. The above findings demonstrate that the proposed refinement plan adoption and code amendments are consistent with all relevant statewide planning goals. (b) Applicable provisions of the Metro Plan The proposed refinement plan adoption and the related code amendments are consistent with the Metro Plan. The drafting of the Downtown Plan included a review of all policy documents adopted since the existing Downtown Plan was adopted in 1984. A list of these documents as well as other planning studies is included in the Appendix to the draft Downtown Plan being considered for adoption as a new refinement plan. The following policies in the Metro Plan, pertaining specifically to downtown, are implemented by the Downtown Plan: · Encourage residential developments in or near downtown core areas in both cities (gA. 19, P. III-A-9). · Provide for transit-supportive land use patterns and development, including higher intensity, transit-oriented development along major transit corridors and near transit stations; medium and high-density residential development within ~ mile of transit stations, major transit corridors, employment centers, and downtown areas; and development and redevelopment in designated areas that are or could be well served by existing or planned transit (#F.3, page III-F-5). Exhibit A - Ordinance 2 - 7 C:kDocuments and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) Lane County, Springfield, and Eugene shall continue to participate in efforts to determine the feasibility of an urban canal that would connect Eugene 'S historic Millrace to Amazon Creek. Likewise, Springfield's efforts to improve the scenic quality of its Millrace should be encouraged (#4, page III-D-4). The proposed Refinement Plan and related code amendments are consistent with these policies; adoption of the Downtown Plan will not make the Metro Plan internally inconsistent. (c) Remaining portions of the Refinement Plan. The proposed refinement plan adoption replaces the existing Eugene Downtown Plan, adopted in 1984. Therefore, EC 9.8424(1)(c) is not relevant as review criteria. EC 9.8424(2) The refinement plan amendment addresses one or more of the following: (a) An error in the publication of the Refinement Plan. The existing refinement plan was adopted nineteen years ago. The proposed updated Downtown Plan replaces the existing plan, but does not address any errors in the publication of the earlier document. This criterion is not relevant. (b) New inventory material which relates to a statewide planning goal. The proposed updated Downtown Plan replaces the existing plan, but does not specifically address new inventory material that relates Co a statewide planning goal. This criterion is not relevant. (c) New or amended community policies. Since the existing Downtown Plan was adopted in 1984, new community policies have been adopted. These policy changes are reflected in the following City documents: 1. Eugene-Springfield Metropolitan Area Transportation Plan (TransPlan), 2001 2. Eugene-Springfield Metropolitan Area Residential Land and Housing Study Policy Recommendations Report, August 1999 3. Growth Management Study, February 1998 4. Whiteaker Plan, August 1994 5. Central Area Transportation Study, 1993 6. Eugene Commercial Lands Study, October 1992 7. Eugene Parks and Recreation Plan, July 1989 8. Eugene/Springfield Metro Area General Plan, 1987 Update 9. Entrance Beautification Study, April 1987 10. Riverfront Park Study, January 1986 Exhibit A - Ordinance 2 - 8 CSDocuments and Settings\ceplnxl\Local Settings\Temporary Intemet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) The draft Downtown Plan incorporates policies and policy direction from these documents, in addition to numerous other studies and planning documents. Therefore, the proposed refinement plan adoption is consistent with this criterion. (d) New or amended provisions in a federal law or regulation, state statute, state regulations, statewide planning goal, or state agency land use plan. A number of new or amended provisions in relevant state and federal laws, regulations and policies affect downtown, including Transportation Planning Rule (TPR, OAR 660- 12), which includes new provisions for Central Business Districts. The draft Downtown Plan incorporates policies and policy direction in response to these regulations. Therefore, the proposed refinement plan update is consistent with this criterion. (e) A change of circumstances in a substantial manner that was not anticipated at the time the Refinement Plan was adopted. Significant changes have occurred in the regional economy and population growth of the city which have substantially impacted downtown Eugene. Physical changes and development, such as the removal of the former pedestrian mall and the construction of the new Federal Courthouse have also significantly affected downtown. The purpose of the updated Downtown Plan is to respond to these changes and provide a policy framework for the desired character of downtown, as a vital, economically healthy, pedestrian friendly city center. Therefore, the proposed refinement plan update is consistent with this criterion. Staff Conclusion for Proposed Refinement Plan Adoption (RA 03-3) Based on the preliminary findings contained herein, staff concludes that the proposed refinement plan adoption is consistent with the relevant criteria in EC 9.8424. CRITERIA FOR EVALUATING PROPOSED LAND USE CODE AMENDMENT CA 03-3 9.8065 Code Amendment Approval Criteria. If the city council elects to act, it may, by ordinance, adopt an amendment to this land use code that: (1) Is consistent with applicable statewide planning goals as adopted by the Land Conservation and Development Commission. (2) Is consistent with applicable provisions of the Metro Plan and applicable adopted refinement plans. (3) In the case of establishment of a special area zone, is consistent with EC 9. 3020 Criteria_for Establishment o_fan S Special Area Zone. EC 9.8065(1) Is consistent with applicable statewide planning goals as adopted by the Land Conservation and Development Commission. Exhibit A - Ordinance 2 - 9 C:XDocuments and Settings\ceplnxl\Local Settings\Temporary Internet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) The proposed Land Use Code Amendment is consistent with applicable statewide planning goals as adopted by the Land Conservation and Development Commission. See findings under 9.8424(1)(a) above. EC 9.8065(2) Is consistent with applicable provisions of the Metro Plan and applicable adopted refinement plans. The proposed Land Use Code Amendment is consistent with applicable provisions of the Metro Plan and applicable adopted refinement plans. See findings under EC 9.8424(1)(b) above. EC 9.8065(3) In the case of establishment of a special area zone, is consistent with EC 9.3020 Criteria for Establishment of an S Special Area Zone. No special area zone is established by the ordinance. This criterion is not applicable. Staff Conclusion for Proposed Land Use Code Amendment (CA 03-3) Based on the preliminary findings contained herein, staff concludes that the proposed land use code amendment is consistent with the relevant criteria in EC 9.8065. Exhibit A - Ordinance 2 - 10 C:~Documents and Settings\ceplnxl\Local Settings\Temporary Intemet Files\OLK238~Findings - Exhibit A - Ordinance 2 (00069924)3.DOC (02/02/04) Exhibit B Eugene Downtown Plan FINAL TEXT DRAFT February 9, 2004 ACKNOWLEDGEMENTS Eugene City Council Mayor Jim Torrey Bonny Bettman Gary Pape David Kelly George Poling Scott Meisner Jennifer Solomon Nancy Nathanson Betty Taylor City Manager Dennis Taylor Downtown Plan Update Committee Jon Belcher Bonny Bettman Mitzi Colbath Rick Duncan John Lawless Anne-Marie Levis Adell McMillan Scott Meisner Nancy Nathanson Charles Rusch City of Eugene Staff Denny Braud Nat Brown Jan Childs Tom Coyle Ken Guzowski Brett Hanson, intern Chris Henry Robin Hostick Nan Laurence, principal author Allen Lowe Gary McNeel Susan Muir Andrea Riner Brenda Schmidt Matt Shuler Rick Siel Mike Sullivan Glen Svendsen Matt Synder Richie Weinman Kurt Yeiter Graphic Design Cindee Lee Design Historic photos courtesy of the Lane County Historical Museum Front Cover Library Photo Courtesy of John Bauguess © 2002 Any business, organization or individual outside the city must ask for permission to use the photograph. Public participation was a critical element in the framing of this plan. Special thanks to the hundreds of citizens who participated in public workshops and discussions for the Downtown Vision, the Courthouse District Concept Plan, North End Scoping Project and other downtown planning activities. For more information or additional copies of this plan, please contact the City of Eugene Planning Division, at 541-682-5481. TABLE OF CONTENTS Introduction I. Strong Regional Center II. Building a Downtown III. Great Streets IV. Special Places V. Living Downtown VI. Downtown Riverfront VII. Cultural Center VIII.Safe Civic Center IX. Getting Around Downtown Epilogue: Making it Happen Maps Downtown Concept Plan A Dozen Downtown Development Opportunity Areas Downtown Financial Tools Downtown Historic Places Downtown Area Housing Eugene Water and Electric Board Aerial Photo Appendix (Note: Maps and page numbers are not included in this text only version) 4 INTRODUCTION Downtown Eugene is the heartbeat of activity in Lane County. Downtown is our civic center and the economic, cultural and governmental focus of the region. Downtown is the place where a wide range of people come for work, celebration, commerce, entertainment, and living. This combination of economic and social activity creates the vitality of downtown, the identity of our city, and the strength of our regional economy. This plan focuses on the character of our downtown as a special place, and presents ideas and policies regarding current conditions and desired changes. This plan renews our vision for downtown, and builds on momentum and enthusiastic community support for a strong and active urban center. Two central themes run throughout this document. First, the City will reinforce downtown Eugene as a strong regional center. City officials will work closely with property owners, developers and community members to bring about a diverse, dense and economically strong urban center. The City will encourage the transformation of vacant and underutilized sites and support the development of commercial, residential, and cultural activities. Second, the City will strengthen downtown as a cultural center and the center of community life. The City will coordinate with public and private developers to create special places downtown. The City will establish a network of great streets downtown that links parks and plazas, cultural and commercial activity areas. The City will create a walkable and memorable downtown, a downtown of short distances and inviting destinations. These ideas are illustrated on the Downtown Concept Plan on Page 5. Background The previous Eugene Downtown Plan was adopted in 1984 and reflected the issues and challenges of that time. Since then, numerous plans and studies focused on downtown, calling for significant public and private investment. Some of this energy and focus was reactive, a response to the changes in downtown shifting from a retail-based market lo an employment-based market. Much of the work has also been strategic, a concentrated effort to strengthen downtown by introducing more housing and capitalizing on key development opportunities, such as Broadway Place, the new Eugene Public Library and the new Federal Courthouse. In 2000, the Eugene City Council appointed a Committee for Greater Downtown Visioning to develop a vision for downtown. The vision that emerged promoted downtown as a thriving, active urban center with ties to our rich natural heritage, a variety of intermingled activities, and safe, inviting streets. In 2001, City Council accepted the Vision for Greater Downtown Eugene and directed staff to use it as the basis for an updated Downtown Plan. This current plan for downtown incorporates the Vision into a framework for public and private decisions affecting downtown in the future. The plan builds on previous plans and studies. A list of this previous work is included in the Appendix. Downtown Plan Study Area The Downtown Plan study area includes the downtown core and immediate adjacent areas. The study area overlaps with three neighborhood refinement plan areas, the Whiteaker Plan, the West University Refinement Plan, and Jefferson Far West Refinement Plan. Where the policies of this plan conflict with adopted policies in previous plans, this most recent plan prevails. Organization of this Plan The plan includes nine related elements, each a fundamental aspect of downtown urban vitality and economic strength: I. Strong Regional Center II. Building a Downtown III. Great Streets IV. Special Places V. Living Downtown VI. Downtown Riverfront VII. Cultural Center VIII. Safe Civic Center IX. Getting Around Downtown The discussion of each element includes policies, implementation strategies, and examples of possible projects. Only policies are adopted by the City Council. Policies are statements to articulate and move the community towards its goals. With the exception of Policy IV 3, relating to EWEB's riverfront property, the policies in the Downtown Plan are aspirational, and cannot be the basis for denial of public or private proposals regarding change in the downtown. Implementation strategies are tactics to address the policies. Implementation strategies often require coordination between city departments or divisions. Projects are examples of specific actions that the City may choose to undertake or participate in. The list in this plan is neither definitive nor comprehensive; projects are often contingent on public funding, and development opportunities. Use of this Plan The policies~ implementation strategies and projects in the plan comprise the basis of a Downtown Work Plan, including short- and longer-term coordinated work activities to be implemented over time based on City priorities and available funding. In addition, this plan will be used to guide public and private decisions regarding change in downtown, including: · Administration, creation and prioritization of City programs and services impacting downtown; · Review of City regulations or ordinances to support desired development downtown; · Review of other plans and policies that affect downtown; · Preparation of the City's Capital Improvement Program; and · Response to public and private development proposals. This plan will help the community make choices about the future of downtown, since the entire community has a role in revitalizing our downtown. It is the intent of the plan to inspire investor confidence, not only in terms of financial capital, but also through time, talent, and commitment to a thriving urban center. The plan reinforces our vision for the heart of our city, our ever-changing, ever-evolving downtown. STRONG REGIONAL CENTER Downtown is the premier location for major commercial, governmental and cultural activities for Eugene, Lane County and the southern Willamette Valley. Downtown has the largest concentration of employment in the region, with thousands of employees in the city center five days a week. Downtown Eugene is home to municipal, county, state, federal and other professional offices patronized by citizens from all comers of the metropolitan area. Most of the region's financial institutions are headquartered downtown, with branches located throughout the city. Major activity centers are located just outside of the downtown core, including the University of Oregon and the Lane Events Center at the Fairgrounds. Both are easily accessible by foot, bike, public transit or car from downtown. Land use policies, as well as technology, transportation infrastructure and other critical services are in place to strengthen and expand the role of downtown Eugene as the regional center. Commercial Activities Downtown Eugene has historically served as the business center in the Eugene- Springfield metropolitan area. Like many other cities, downtown Eugene has evolved from an economic center of industrial uses and anchor retail stores to a center for professional and government services. Approximately 15,000 people work in the downtown area. Over the past twenty years, downtown employment and the volume of downtown office space has increased dramatically. The majority of all office space in Eugene is currently located downtown. Commercially zoned properties in downtown Eugene have some of the highest land values in the metro area. Commercial activities benefit from the central location and the concentration of other business and government activities in the downtown core. Downtown office buildings in particular are among the highest value development in the region, strengthening the economic base for downtown. Dense commercial office development generates significant employment opportunities and pedestrian activity, which in turn supports retail, restaurants, cultural and entertainment venues. Civic Center Downtown is both a regional center, and the civic center of our community. Public offices belong downtown, including state, federal and local institutions, as well as non- profit organizations. The new library, relocated to the downtown core from its previous location south of 13th Avenue, is the pride of the entire community. City Hall, the Lane County Courthouse, and the new Federal Courthouse are all located on 8th Avenue. Other uses such as existing and future downtown fire stations, +~'~ ~ ...... '~ ...... *~,,,- Gemer-;, the downtown LTD Eugene Station and numerous state and federal offices support the multi-faceted civic character of downtown. The Eugene Convention Center draws people downtown from the city and the region for a multitude of conferences and events, both public and private. Cultural Center Downtown is the location for major cultural events. Regional attractions such as the Oregon Bach Festival, the Oregon Festival of American Music, local opera, symphony and ballet companies perform downtown at the Hult Center and the Shedd Institute for the Arts. Smaller theatres, art galleries and related arts activities are also centered downtown. Downtown has significant examples of public art sculptures, fountains, and decorative paving ornamenting buildings and public spaces. These creative activities and works of art reinforce downtown's character and economy. Educational Activities Located east of downtown, the U of O is home to 20,000 students. The U of O is a strong component of the identity of downtown as well as the entire community. Other education facilities, such as Northwest Christian College, Pacific University, Lane Community College's downtown campus, and the U of O's Baker Center are in or near downtown. The large number of students contributes diversity and vitality to downtown and supports businesses and employers. The City encourages downtown development that is compatible with this educational community. Policies 1. Build upon downtown's role as the center for government, commerce, education and culture in the city and the region. 2. Downtown development shall support the urban qualities of density, vitality, livability and diversity to create a downtown, urban environment. Implementation Strategies A. Help employers locate, remain and expand downtown by targeted use of economic tools and incentives. B. Work with individuals, service and advocacy groups such as the Chamber of Commerce, the Convention and Visitor's Association of Lane County (CVALCO), leasing agents, builders, and Downtown Eugene, Inc. to attract high density commercial and residential development downtown. C. Promote multi-story, mixed use structures downtown through financial incentives or code amendments. D. Work with local, state and federal offices to locate, remain or expand in downtown. 9 E. Promote visitor and convention use of existing facilities in or near downtown, including exhibit and meeting spaces, lodging and restaurants. F. Work with major medical providers to locate their facilities in and near downtown. G. Encourage education-related development downtown, such as student housing and support services. Projects Examples of possible projects that address the implementation strategies: Locate a headquarters or regional office facility downtown. Expand the square footage of convention facilities downtown. Provide incentives for the location of medical facilities downtown. · Provide incentives for the redevelopment of the Sears site for a multi-story office building. · Coordinate with the U of O to locate university offices downtown. 10 BUILDING A DOWNTOWN Downtown Eugene operates in a regional economy. In order to maintain the economic strength of downtown, the City will take a proactive role in promoting the desired dense, high quality development and targeted investment downtown. The City will prioritize public actions that support downtown development by working closely with developers, leveraging economic tools and City-owned property to achieve desired results. The City will be poised to act on opportunities and challenges as they arise. Building Partnerships The City cannot be a passive or isolated player in building our downtown; a proactive, collaborative, strategic focus is essential. The City will work with developers and landowners to facilitate projects that build an active, inviting, economically strong downtown. Partnerships and a collaborative work ethic are necessary within the City workforce as well. The City will strive to ensure that every level of the City organization involved in public projects or project review downtown works together in support of the vision for downtown. Capitalize on Development Opportunities The City's ability to capitalize on development opportunities represents the best prospect for bringing the vision expressed in this plan to reality. This plan provides the policy framework that supports appropriate development in downtown. This plan also emphasizes the flexibility and commitment to respond to unanticipated opportunities. As change occurs with business relocation and expansion, new development opportunities arise. The City will be responsive to the needs and opportunities that these changes represent. Many of the strongest downtown developments in the last twenty years were not predetermined in the previous plan for downtown. Examples include Broadway Place, the Shedd Institute for the Arts, LTD's Downtown Station, and the location of the new library. But the City has worked to be prepared for such opportunities, to facilitate and expand desired development downtown. The Dozen Downtown Development Opportunity Areas map on page 47 indicates the location of some of these potential sites. Financial Tools The targeted use of economic development tools is a key part of the City's commitment to a vital downtown. Market conditions often result in higher costs for downtown development, due to a variety of financial constraints and barriers such as assembling smaller parcels for larger projects, higher land costs, vertical and mixed-use construction costs and parking needs. However, development in the core area of the city places less impact on infrastructure and transportation systems, which is ultimately less expensive and more sustainable over the long run. Yet the viability of each individual development project is primarily driven by project cost and risk. Therefore, when the cost and complications of development downtown is greater, development will inevitably occur outside of the downtown area. 11 The City will strategically use collaborative and financial tools to counter these market conditions and influence the location, character and density of development. Collaborative tools focus on technical development assistance such as reviewing projects or working to promote a more favorable lending environment. These tools often have timing and cost implications, such as fast tracking permits, or providing fee assistance. Financial tools include revenue for development projects or incentives from a variety of sources, as listed below. The Downtown Financial Tools map shown on page 48 indicates the location of those tools that are geographically based, including the urban renewal districts. Typically, the purpose of economic tools is to close the gap between the development costs in the downtown core and development costs outside of downtown. Incentives can be used to encourage retail activity and improve the architectural character of new or redeveloped properties. The focused use of these tools materially impacts the location and quality of development, and the image of downtown Eugene as a place to do business and to live. · Urban Renewal Districts Tax increment revenue generated through the two urban renewal districts in downtown is the primary financial tool for downtown projects. This revenue can be used for a wide range of development purposes within each district, from land acquisition to renovation and faCade improvements. The City's Urban Renewal District Plans include the requirements of the districts and list examples of downtown-related projects. · Commercial Revitalization Loans Urban renewal revenue can be used to make loans for building rehabilitation, renovation, facade improvements, historic preservation, tenant improvements, accessibility, and general property improvements within the Downtown Urban Renewal District. · Multi-Unit Property Tax Exemption (MUPTE) The program offers a ten-year property tax exemption for the construction of new multi- unit rental or ownership housing within an eligible boundary. · Vertical Housing Development Zone The program offers a ten-year tax exemption on mixed-use projects within an eligible boundary that include housing above ground floor commercial. · New Markets Tax Credits This is a federal program that uses funds generated from tax credit sales for economic development. · Community Development Block Grant (CDBG) Funds received from the federal government each year can be used for activities such as job creation, elimination of slums and blight, and accessibility improvements. 12 · HUD 108 Loan Guarantee This federal program allows communities to borrow up to five times their annual CDBG allocation in order to fund eligible CDBG projects. · Fee Assistance and Permit Fast-Tracking Waiving or reducing the cost of permit fees or System Development Charges (SDCs), or fast tracking the permit process, can be used to offset the higher cost of developing downtown. · Revenue Bonds An existing revenue source (i.e. urban renewal tax increment) can be used to generate larger amounts of up-front funding that is paid back over time. · General Obligation Bonds A voter approved property tax levy is used to generate up-front funding for specific capital improvement projects. · Local Improvement Districts Infrastructure improvements such as streets and sidewalks are paid through property owner assessments. · Parking New and existing public parking can be used to assist private development downtown. Easily available parking encourages downtown business and cultural activities, and creates a positive experience and perception of downtown. Facilitating Development The City's role in facilitating development is multifaceted. Planning activities, such as insuring that appropriate zones are in place downtown, set the stage for desired development. Currently, a number of base zones and overlay zones are in place downtown, including two commercial zones, the Transit Overlay District, and the Broadway Design Standards. All zoning regulations for downtown should be reviewed to look for ways to simplify and expedite development downtown. In addition, there are underused and vacant sites throughout downtown. Some of these parcels downtown are not designated for commercial use, or are designated commercial but not commercially zoned. These sites, which include surface parking lots downtown, need to be redesignated or rezoned to allow for the commercial redevelopment envisioned in this plan. Design Quality Well designed projects create an inviting urban experience and strengthen the overall desirability of downtown in the regional marketplace. Design quality is not dependent on a particular architectural style. It requires an understanding of the elements of buildings necessary to create public spaces that contribute to urban vitality and civic life. Successful project designs typically demonstrate the following principles: · Use high quality materials, particularly on the first floor; 13 · Incorporate works of public art; · Promote active first floor uses; · Provide prominent entries facing public streets; · Place buildings close to the sidewalk; · Respect the context and character of adjacent historic buildings. Design regulations are currently in place in the Land Use Code for commercial and multi- family residential projects. Incentives may be needed to assist high quality development in downtown. Examples include a loan fund for awnings, outdoor seating, historic renovation, specially designed or coordinated signs, or additional streetscape amenities. Policies 1. Actively pursue public/private development opportunities to achieve the vision for an active, vital, growing downtown. 2. Use downtown development tools and incentives to encourage development that provides character and density downtown. 3. Facilitate downtown development by re-designating and rezoning underutilized properties, such as surface parking lots, to commercial land use designation and a commercial zone such as C-2 or C-3. Implementation Strategies A. Facilitate desired development by providing financial incentives and resources. B. Amend the Riverfront Research Park Urban Renewal Plan to expand the boundaries and extend the district's life. Use it to facilitate desired development, particularly in the Courthouse and riverfront areas. C. Expand the use of revenues in the Downtown Urban Renewal District in order to provide financial tools and incentives for desired development within the district. D. Establish a new Downtown Urban Renewal District to better capitalize on commercial and housing development opportunities in the areas immediately outside of the existing core-area downtown urban renewal district, and between the downtown core and the emerging Courthouse development area. E. Develop a differential city fee structure or subsidy of fees for downtown development. F. Perform a regulatory audit to identify impediments to achieving higher density, mixed-use development and redevelopment downtown. 14 G. Identify and facilitate infrastructure improvements as a public incentive for private development. H. 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. Projects Examples of possible projects that address the implementation strategies: · Provide incentives for the redevelopment of the vacant Bon Marche/Symantec building and vacant Centre Court building. · Promote dense, mixed-use developments on the surface parking lots located at Broadway and High Street and Broadway and Pearl Street. · Issue request for proposals for purchase and development of the City-owned property adjacent to the new Federal Courthouse site. · Provide incentives for faCade improvements and redevelopment of retail spaces on Broadway between Willamette Street and Charnelton Street. · Work with private property owners toward the redevelopment of the commercial warehouses on 8th Avenue in the Courthouse area. 15 GREAT STREETS Great Streets connect special places with safe, convenient and interesting routes. They are pedestrian-oriented in design and appearance, with retail and other active ground floor uses. They accommodate bicycles, slow-moving automobile traffic, on-street parking and emergency vehicles. Great Streets are places people choose to walk along and return to. The concept of Great Streets was one of the most strongly supported ideas in the Vision for Greater Downtown Eugene as a way to characterize downtown and focus public attention and funding. These Great Streets will be the basis of a walkable downtown network that encourage pedestrians and retail activity. Historically, Broadway and Willamette Street were the important streets downtown. 5th Avenue and 8th Avenue were also key streets, one for market activities and one for civic uses. Part of what makes these streets great is their connection to places that are important in the history of our community, reinforced by building design and the location of public art. All four of these streets need to be designed as urban open space, to transcend the function of moving traffic and flourish as pedestrian routes and destinations. A public improvement strategy will be created to reinforce the special character of each Great Street. Improvements will include elements such as special paving, street trees, and street furniture. Design guidelines are already in place for buildings that front Broadway between Oak and Chamelton. Similar guidelines should be extended to all the Great Streets to promote high quality, pedestrian orientated design. Commercial signs or signs for information, direction, or public safety need to be well designed and placed along these streets to add to the sense of purpose and activity, not increase the visual clutter. Willamette Street Willamette Street is the historic main street of Eugene. Although the historic buildings clustered at Broadway and Willamette are gone, the street remains the significant commercial street in downtown. Several blocks along Willamette have been improved with the removal of the pedestrian mall, but a unifying concept for the portion of this street between 5th and 13th Avenues still needs to be developed and implemented. Willamette Street opens onto the plaza at Broadway and Willamette and the Hult Center Plaza. The City should consider changes to the Hult Center Plaza to enhance the visual connection between Skinner Butte and Spencer Butte, and if possible, allow access for transit and emergency vehicles. The north end of Willamette Street ends at the train depot. A pedestrian connection across the railroad tracks to Skinner Butte Park has been desired for many years and should be vigorously pursued. Broadway The pedestrian ambience along parts of Broadway is among the best downtown. It is consistently ranked as a favorite retail location for window shopping and dining. Ground 16 floor retail, restaurants, and sidewalk activities such as outdoor caf6s are specifically encouraged along this street. In 2002, Broadway was reopened to accommodate automobiles, with enhanced public spaces and pedestrian amenities. The redesign honors the unique role of this street as a public venue for such events as the Eugene Celebration and First Night. Improved pedestrian crossings at Broadway and Mill are included in the planned transportation improvements for the Courthouse District. These improvements are opportunities to create a gateway into downtown from State Highway 99 (Franklin Boulevard). 8th Avenue Historically, 8th Avenue has functioned as a "Civic Street." It was the location for the Park Blocks, originally including all four comers of 8th and Oak. The 1875 City Hall, which included a jail and firehouse, and the Lane County Courthouse were all located on 8th Avenue. This avenue is still the location for major public buildings, including City Hall and the County Courthouse. The new Federal Courthouse will continue this tradition, with its location on 8th Avenue east of Mill. The civic character of 8th Avenue should be reinforced through a linked series of existing and planned open spaces. These include the Park Blocks, Cannery Square in front of the new Federal Courthouse, the Millrace, and a proposed riverfront plaza. The City has begun the process of creating a concept for a civic center, including a new City Hall and police headquarters, possibly with other local government agencies. The preferred location for the new civic center is on 8th Avenue, between the Park Blocks and Mill Street, either on the existing City Hall site, or on a block facing 8th in the immediate vicinity. 5th Avenue 5th Avenue was an early market street. Today, the downtown urban quality of 5th Avenue stretches from Chamelton Street to High Street. 5th Avenue is the location of a variety of uses and unique building types, ranging from trendy shops and restaurants to the Lane County jail. Existing historic buildings along 5th Avenue have been adapted for modem uses, including the Farmer's Union Building, the Lane Hotel, the Granary, the Oregon Electric Station, and the 5th Street Public Market. This avenue has its own retail character and historical identity, different from the other Great Streets, due to the varied building types, setbacks and activities. Design guidelines for 5th Avenue need to respond to the quirky and fragmentary quality of the avenue, the historic context, and the development potential that exists along its length. These guidelines need to stress filling in the gaps along the street and encouraging buildings with minimal setbacks and parking in the rear. Currently, 5th Avenue ends at the railroad tracks at High Street, with pedestrian access to the riverfront only through a small path in EWEB's parking lot. An improved connection is needed to provide visual and physical access to the Willamette River and the riverfront path system. 17 Downtown Gateways All four Great Streets provide major entrances into, not just through, downtown. These entrances should be distinct to signify these streets and to reinforce the identity of downtown. A creative solution including public improvements such as landscaping and artful direction and information signs should be crafted for each key location. Policies 1. Emphasize Broadway, Willamette Street, 5th and 8th Avenues as Great Streets through public improvements and development guidelines. Include portions of these streets as follows: · Willamette between 5th and 13th Avenues · Broadway between Lincoln and Hilyard · 5th Avenue between Lincoln and High Street (with potential extension to the Willamette River) · 8th Avenue between Willamette Street and the Willamette River 2. Strongly encourage the location of significant municipal, county, state and federal buildings along 8th Avenue. Implementation Strategies A. Develop a separate design strategy for each Great Street. Include street improvement elements such as: public art, special planting schemes, center medians, street lamps, benches and kiosks, banners, and building, street and information signs. B. Develop design guidelines for buildings along the Great Streets. Include elements such as setback, quality of materials, design of first floor, and treatment of parking. C. Link Great Streets to important public places, including urban plazas and open spaces. D. Seek funding and develop a plan for a new City Hall and police station along East 8th Avenue. Projects Examples of possible projects that address the implementation strategies: · Implement street improvements for 8th Avenue, with public art elements, special light standards, signs and street furniture. · Implement a design study and possible acquisition of land to make a stronger pedestrian connection from 5th Avenue to the riverfront. 18 Create a pedestrian connection across the railroad tracks between the end of Willamette Street and Skinner Butte. · Provide a loan fund for faCade improvements along West Broadway. Include signs, public art and landscaping at the gateways to downtown along Broadway and Willamette. Begin site analysis of possible locations along East 8th Avenue for a new City Hall and police station. 19 SPECIAL PLACES Special places for economic and social interactions create the vitality needed for a tree downtown environment. Downtown is a collection of special places, including buildings, plazas and parks. These special places are a fundamental component of urban vitality. They draw people downtown for their unique character, intensity and variety of activities. These special places for commerce or recreation reinforce downtown's unique character, based on local history and civic traditions. Not coincidentally, these places are generally located along the Great Streets of Eugene and feature works of public art. These places must be inviting and easily accessible throughout downtown, for planned and serendipitous encounters, for special times and for every day. Special Places Downtown The Park Blocks The Park Blocks are the heart of downtown Eugene, the city's stage for celebration and commerce. They are used on a daily basis as an urban oasis, and they are filled with people during times such as the Saturday Market and Farmers' Market. Strategies to maintain the Park Blocks as the ceremonial center of the city should include consideration of areas that were historically part of the original park, including all four comers of 8th Avenue and Oak Street. Buildings surrounding the Park Blocks are encouraged to maintain or develop street level active uses to contribute to the activity and safety of the Park Blocks. Broadway Plaza Located at the historic crossroads of Willamette and Broadway, Broadway Plaza was designed to provide a special place in downtown. It is used on a regular basis for sitting, eating and talking with friends. It is transformed on special occasions into an outdoor theatre for large public events. It showcases public art, including special paving, the Four Seasons sculptures, and carefully crafted ceramic tiles. An enhanced connection between Broadway Plaza and the Park Blocks is needed to create a prominent pedestrian path between these two downtown destinations. Hult Center and Shedd Institute for tile Arts The Hult Center and the Shedd are significant cultural destinations. Performances at both locations bring citizens and visitors to downtown from all over the community and region. The Hult Center Plaza is packed with people during events such as the Eugene Celebration or free performance previews. The Shedd is a recent and wonderful addition to downtown, housed in the former First Baptist Church. This architecturally significant structure is located on Broadway, close to restaurants and shops. In addition to concerts and performances, the Shedd offers instruction and workshops in the arts. Eugene Public Library Our new downtown public library has become a very special place for the community. The library includes both indoor and outdoor public plazas, children's activity area, 20 public meeting rooms, a caf6 and a used bookstore. Public art is located throughout the building and exterior spaces. The library draws people of all ages downtown, for events and activities and the simple pleasure of finding a book to read. The River The Willamette River is a treasured recreational and environmental asset, and should be a fundamental aspect of the identity and vitality of our city. The EWEB fountain and riverfront plaza is one of the few points of access to the river in downtown. Access to the riverfront from downtown will be enhanced as neighboring areas develop and 5th and 8th Avenues are improved as Great Streets. The plan supports the creation of a carefully designed at-grade crossing of the railroad tracks at 8th Avenue, with an inviting civic destination where 8th Avenue leads to the river's edge. Development and activities along the riverfront should support the use of this special area as an urban recreational resource. Views of the river from adjacent developed areas should be emphasized. The Millrace and Cannery Square The Millrace is a visible reminder of the city's industrial beginnings. Only a portion of the Millrace is an exposed waterway; the remainder is in a culvert at the end of Ferry Lane, west of Patterson Street until it reaches the Willamette River through the EWEB property. Recent planning efforts around the new Courthouse reinvigorated ideas for the Millrace to provide an above-ground pedestrian path to the river. Design concepts and cost estimates for Millrace improvements vary widely. This plan supports the concept for full daylighting of the Millrace, between the existing surface waterway ending at Ferry Lane and the outfall on the EWEB property. Cannery Square is the name proposed for the public space envisioned near the comer of Ferry Street and 8th Avenue, in front of the new Federal Courthouse. This space will be designed as part of the improvements to the Courthouse area and may include Millrace improvements. Cannery Square is envisioned as part of the sequence of public spaces along 8th Avenue leading from the Park Blocks to the river. 5th Avenue Area The 5th Street Market is one of the best loved and most successful places downtown. It is a downtown destination for workers, residents and visitors. A number of other popular places are located along 5th Avenue, including shops and restaurants. Rehabilitation of the train depot at the north terminus of Willamette Street just north of 5th Avenue is underway. Future improvements may include a railway overpass, a vehicular and pedestrian loop and a public plaza. Much of the train depot area is designated and zoned for industrial uses. This area will be redesignated and rezoned to allow commercial development compatible with the adjacent downtown area. Projects that help to "fill in" the missing pieces between activity areas are especially encouraged. Historic Properties Historic properties are special places downtown. Not coincidentally, many historic structures are located along the Great Streets. These structures remind us of the history of our community and the architectural heritage that characterizes Eugene. They deserve 21 recognition through informational plaques and walking tour brochures. Some of the historic crown jewels include the WPA-era post office and the McDonald Theater on Willamette Street, the Oregon Electric Station on 5th Avenue, and the Tiffany Building on 8th Avenue. The Historic Places map on page 49 indicates properties of historic interest downtown. Some of these properties have been designated as City Landmarks or as National Register properties; the remainder are older structures that reinforce the sense of history and the walkable character of downtown. New development needs to respect the quality of historic structures. It is not typically necessary to duplicate older buildings in terms of details or styles. Instead, new design must be sensitive to historic context and character, such as maintaining the same street orientation, setback or quality of materials. New buildings must preserve and capitalize on the value of historic structures. The City encourages listing of significant structures in the National Register of Historic Places or as City Landmarks. Historic preservation planning identifies resources that are traditionally over 50 years of age, so many modem era (1935-1965) resources are coming into their own for consideration as landmarks. Properties listed as historic are eligible for financial incentives and special consideration for flexibility within the land use code. Listing of historic structures increases our understanding of local history, people and places and helps preserve these properties for the future. Listing of historic structures requires consent of the property owner, public or private. Nearby Open Spaces Downtown is bordered by a wealth of extraordinary open spaces - Skinner Butte Park, Alton Baker Park, and the extended Willamette River Greenway park system. These places provide great views of the city or the river, and opportunities for outdoor recreation. Activities such as biking, canoeing, kayaking, even rock climbing and bird watching take place directly next to Eugene's commercial core. Eugene's unique community identity and quality of life are intricately bound to these nearby nature areas. These areas complement the urban experience downtown. They become even more critical as density and intensity of uses increase in the downtown core. These areas must be easily visible and accessible from many points downtown. They should be promoted as a key element in the marketability, economic viability and livability of downtown. Policies 1. Enhance public places throughout downtown through the careful design of civic buildings, streetscapes, parks and plazas. Include public art and other elements to create special places for all ages. 2. Connect special places downtown with enhanced street designs, public art, directional signs, transit routes, and historic markers to create an inviting and memorable route through downtown. 22 3. Promote adjacent park and open space areas as a valuable complement to downtown's urban places. Improve connections between downtown and nearby nature areas. 4. Encourage listing of appropriate structures and sites of historic importance in the National Register of Historic Places or as City of Eugene Historic Landmarks. Implementation Strategies A. Encourage the creation of new special places especially along the Great Streets. B. Amend the Eugene-Springfield Metropolitan Area General Plan to redesignate the train station from industrial to commercial land use, and rezone to a commercial zone such as C-2 or C-3. C. Create an artful directory sign program throughout downtown that directs people from special place to special place. D. Prepare an open space plan for downtown that includes the Park Blocks, parks adjacent to downtown and the riverfront path system. E. Provide places downtown that appeal to children and families. Consider places to play or learn about the city. Design places with kids in mind. F. Identify areas along streets that can be enhanced by landscaping, art or pedestrian amenities. G. Support programming for music, art and other events in the special places downtown. H. Maintain views and access from downtown to nearby open space areas. Include signs and sidewalk improvements. I. Create a civic design review board to assist in and approve the designs for all civic facilities, particularly in our downtown core. J. Reinforce the continued use of the Park Blocks for the Saturday Market and Farmer's Market. Projects · Examples of possible projects that address the implementation strategies: · Install graphics for downtown information and directions at the Park Blocks. · Develop a funding strategy to daylight the Millrace from Ferry Lane to the Willamette River. 23 · Locate a play structure for kids near the Park Blocks. · Work with Lane County to develop a mixed use or civic structure in place of the butterfly parking lot on Oak Street between 7th and 8th Avenues, to better integrate this site with the Park Blocks. · Implement a historic plaque program and walking tour. 24 LIVING DOWNTOWN Housing is essential to the vitality and the character of the downtown core. Housing transforms downtown from an institutional and employment center to a neighborhood. People who live downtown, particularly homeowners and long-term renters, become stakeholders for the health of downtown. They enhance the customer base for shops and restaurants, and provide an after-hours vitality to the area. As patrons for these businesses increase, the downtown becomes more attractive to local and regional investors. Downtown Housing Downtown housing is increasingly seen as convenient and prestigious. Demographic projections indicate growing interest in smaller urban dwellings close to work and services downtown. Cultural activities and public transit are attractive to potential urban dwellers, who are beginning to imagine a future without the expense of an automobile. Live/work units are convenient and efficient, add to the liveliness of downtown, and help reduce transportation needs in the city. A variety of housing densities and types exists within and along the edges of downtown. Approximately 2,500 residential units are located within two blocks of the downtown plan area, including single family houses, mixed-use structures, and residential high-rises. The Downtown Area Housing map on page 50 indicates the location and density of residential units in and around downtown. This plan encourages additional housing units within downtown and on the edge of downtown. Both rental and ownership housing at a variety of densities and prices are desired and should be supported with economic tools available to the City. Design and construction of new residential structures should be sensitive to the character of existing historic properties and neighborhoods. Design review for new structures is needed to help ensure compatibility of scale, setback and orientation, and maintain livability of these areas. Market Conditions Market conditions, specifically the higher cost of building housing downtown than elsewhere in the city, have been a deterrent to downtown housing without some level of public sector financial support. Currently there are approximately 1,000 residential units in the downtown plan study area. The majority of these units were built in the past 25 years and relied on public financial subsidies. While housing is desirable and encouraged, there are many obstacles associated with the development of housing downtown. These include higher land costs, higher construction costs associated with taller structures, the need for secure parking, and market rents that are not high enough to support the cost of development. For mixed-use housing projects, the obstacles and costs are even greater due to the complexity associated with financing, construction, compatibility of uses, parking, and market demand. 25 Recent economic studies conclude that demand in downtown's current real estate market is not sufficient to overcome the obstacles and related costs. Therefore, the public sector must take an active role in facilitating downtown housing projects. Tools that can play an important role in stimulating downtown housing include the Multi-Unit Property Tax Exemption program (MUPTE), a Vertical Housing Development Zone, revenue from urban renewal districts, public lending, parking, land assembly, Federal Low-Income Housing Tax Credits and bonding. Neighborhood Preservation Residential neighborhoods on the periphery of downtown provide a relatively high residential density bordering the commercial core. Residents in these areas take advantage of the proximity of downtown activities and nearby open space. These neighborhoods have a high concentration of historic properties, with walkable, tree-lined streets. The Downtown Plan recognizes the value of these neighborhoods to the community and to downtown. Policies 1. Stimulate multi-unit housing in the downtown core and on the edges of downtown for a variety of income levels and ownership opportunities. 2. 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. Implementation Strategies A. Expand the MUPTE program boundary to encourage housing on the edges of downtown. Periodically review boundaries and expand to include areas where additional housing is appropriate. B. Establish a vertical housing tax exemption zone in order to encourage residential density and mixed-use development. C. Develop additional financial tools to assist with the development of housing, including the use of bonds, tax increment financing, land assembly and parking. D. Remove regulatory barriers to the development of housing in commercially zoned areas downtown, while ensuring compatibility of uses and design. E. Reinforce opportunities for home ownership downtown. F. Seek opportunities to equalize the costs of building housing in and near downtown compared with locations elsewhere in the city. 26 G. Support the continued residential use of structures in neighborhoods bordering downtown. Projects Examples of possible projects that address the implementation strategies: · Build an affordable or mixed income housing development on the 8th Avenue "land bank" site east of the WOW Hall. · Develop a residential mixed-use project on Willamette Street incorporating the former Woolworth site and Centre Court building. · Encourage rehabilitation of older multi-story rental housing south and east of the downtown core. · Seek new opportunities for owner-occupied housing in or near downtown through incentives such as MUPTE, CDBG, and Urban Renewal. · Assess and mitigate the impact of infill development in the neighborhood areas immediately adjacent to downtown. · Conduct a downtown area housing policy analysis to assess the impact of policies affecting neighborhoods on the periphery of downtown and recommend policy amendments to promote housing preservation. 27 DOWNTOWN RIVERFRONT The vision for downtown is an active, strong urban core connected to the river. Bringing downtown development near the banks of the river, and expanding elements of the river environment into downtown, reconnects the city to our heritage and our most precious natural resource. Development near the river brings creates an experience that is both urban and wild, and provides economic development opportunities that are uniquely Eugene. Bringing the river environment into developed areas creates a sense of place based on our great river, and draws people back to the river itself. Eugenians have long envisioned a reconnection between downtown and the Willamette River. In Eugene's earlier days, the river was the center of activity and industry. Over the years, the city has grown away from the river. The river, too, has changed, and the once plentiful Chinook salmon is now federally listed as a threatened species. This plan promotes the development of an environmentally sensitive, "fish friendly" urban waterfront to bring people from downtown to the river. A combination of public and private actions will be required, both in the near and long term, to realize this vision. EWEB Property EWEB's riverfront property represents the best opportunity for the development of a downtown riverfront. This property, approximately 27 acres, is currently used for EWEB's utility operations and administration offices. If EWEB succeeds in its efforts for a phased relocation from this site, much of this land will become available for redevelopment. Buildings remaining on the site should be evaluated for reuse and historic significance, such as the Steam Plant. A timeline is not identified for EWEB to leave the site, nor has any redevelopment scenario been proposed or approved. The EWEB Property map on page 51 depicts the EWEB riverfront and adjacent areas downtown. The redevelopment of EWEB's property requires a well-conceived concept to bring Eugenians and visitors to the river's edge. A master plan for future development or reuse of the EWEB site is needed, so that short-term actions do not preclude a comprehensive, thoughtfully designed plan for the property in the future. This master plan will emphasize a "people place" on the river, balancing the development potential of the site with an environmental strategy to ultimately benefit the river environment. Ample open space with nearby dense development will provide opportunities to enjoy this special area in all seasons, and strengthen the connection between downtown and the river. Courthouse District The Courthouse district is an emerging downtown area, centered around the Federal Courthouse on the former Agripac property on East 8th Avenue. This area lies directly between the core of downtown and the river. With the projected transportation improvements to 6th Avenue, 8th Avenue will connect across Mill Street, providing improved pedestrian and vehicular connections. Much of this area is zoned industrial. Rezoning will be required to encourage a mix of uses through private redevelopment. A variety of commercial and residential uses will create the activity consistent with the 28 character of the core of downtown, while allowing the unique character of this area to emerge. 5th Avenue A 5th Avenue connection to the riverfront has been a part of the vision for downtown for decades. The east end of 5th Avenue ends at an at-grade railroad crossing at High Street. This area of 5th Avenue is already a popular downtown destination. An inviting pedestrian route from the terminus of 5th Avenue would allow some of the eclectic energy and character of this street to extend to the river. A full street extension would allow more intensive reuse of EWEB's properties, including areas currently used for surface parking. Additional River Connections Other connections to the riverfront from downtown currently exist and should be enhanced. These include Lincoln Street and High Street, providing access to the fiver from Skinner Butte Park. These existing connections lie just outside the reach of this plan but within easy walking distance from downtown. Multiple points of access will strengthen the river as a key element in the character of our downtown and the heritage of our community. The City should support all practical means of establishing or enhancing existing connections to the public waterfront. Connections from downtown to the fiver need to be well-marked, with carefully designed signs for information and direction. Policies 1. Incorporate the Willamette River as an integral element to downtown planning and development. 2. Collaborate with EWEB to encourage relocation of their utility facilities. 3. A master plan for the EWEB riverfront property must be approved by the city before any redevelopment, land use application, rezoning, Metro Plan or refinement plan diagram amendments are approved for uses not associated with EWEB functions. The master plan shall be evaluated based on the master plan's consistency with principles A through D below: A. Create a "people place" that is active, vibrant, accessible and multi-use. B. Provide appropriate setbacks, deeper where environmental or habitat issues are more critical, shallower in other areas. C. Incorporate appropriate building and site design techniques that address environmental concerns. D. Incorporate an educational aspect, so that the hverfront improvements teach us about our river, our history and our city. The master plan shall be considered using the City's Type II application procedures, unless the applicant elects to have the master plan reviewed concurrently with a Type III, Type IV or Type V application. 29 4. Facilitate dense development in the Courthouse area and other sites between the core of downtown and the river. Implementation Strategies A. Create inviting physical and visual access to the riverfront from 8th and 5th Avenues, and explore opportunities for additional access between these two points. B. Rezone the Courthouse area from Light-Medium Industrial 1-2 to a commercial zone compatible with downtown. C. Reinforce the relationship between downtown and the river through landscaping, art, signs, street furniture, historic plaques and markers. D. Conduct a study of riparian habitat values and restoration opportunities within the Willamette River riparian zone to guide protection and restoration activities in that area, and to identify those areas of lower habitat value. E. Enhance existing points of access from downtown to the river so that convenient connections are visible both from the riverfront to downtown, and from downtown to the river. F. Explore possibilities for parks or public open space along the riverfront. Projects Examples of possible projects that address the implementation strategies: Partner with EWEB to develop a master plan for the EWEB site. · Assess and provide mitigation for stormwater issues related to the potential development of riverfront properties. · Introduce pedestrian-related improvements along all paths leading to the river. · Develop an adaptive use concept for EWEB's Steam Plant. · Daylight the Millrace to connect downtown to the river and capitalize on this historic waterway. 30 CULTURAL CENTER Cultural and entertainment activities bring people together downtown and fuel the imagination and creative soul of our city. Downtown Eugene is rich in cultural and entertainment events. Programs at the Hult Center attract visitors from all over the region. The Saturday Market and Farmers' Market bring residents and visitors to the Park Blocks, and tens of thousands of people attend yearly events such as the Eugene Celebration and Eugene First Night. Other events and locations include downtown theaters, restaurants, and art exhibits. These activities are as much a part of downtown Eugene's identity and character as the local weather. Ours is a creative, unique community, a city that takes itself seriously but not too seriously. To maintain this identity, attitude and market cache, the City will encourage and accommodate an inviting variety of creative activities and venues. The City will reinforce downtown as a destination for all ages, from January to December. Visual and Performing Arts The arts community in Eugene is creative and enthusiastic, visible and vocal. Numerous arts activities are downtown, including local arts at the Saturday Market, gallery exhibits, monthly First Friday art walks, street performances and theatre performances. Special events such as the Mayor's Art Show, the Salon des Refuses, and the occasional tuba concert complement ongoing work of artists, writers, even instrument makers. These activities reinforce downtown as a creative, distinctive place, with people coming together to exchange ideas and share results. Downtown needs to be a place for the production and display of artistic endeavors. An art museum, an idea still in its conceptual stages, could be a key cultural venue for Eugene's center. Studio spaces and places for live performances are encouraged, as are live/work units in and near downtown. This plan also promotes arts activities in the special places downtown. Local History History is an important part of the cultural heritage and identity of downtown. Many buildings of historic importance are located within the traditional grid of downtown streets. Many older structures are key downtown locations, such as the former Ax Billy Building, now the Downtown Athletic Club, and Swift Company Poultry Plant, now the 5th Street Market. Many of the open space areas adjacent to downtown provide active and passive educational activities related to our local cultural and natural history. Skinner Butte Park, for example, includes the land once claimed by Eugene Skinner. This park has been used for decades as a living classroom for local history and plant diversity. The rich Native American history of this area is illustrated by the Kalapuya Talking Stones, in the Whilamut Natural Area of Alton Baker Park. 31 Historic markers are important to recall the original names and uses of places and buildings, so that the layers of history can enrich the present. Plaques and signs are important to mark important buildings now lost, as well as events and people significant to the history of our community. Places such as the Wayne Morse Free Speech Plaza, in front of the County Courthouse, or Cannery Square, envisioned in front of the new Federal Courthouse, teach us about what we value and want to remember. The Lane County History Museum, currently located at the Fairgrounds, is considering relocation. A downtown location would enrich the cultural opportunities available in the city center and is highly encouraged. Restaurants Eugene is well known for a variety of restaurants located throughout downtown, bringing residents into the heart of the city. Restaurants and cultural events are synergistic; dinner before a show or dessert after is routine for many concert and theater -goers. Restaurants round out the activities doWntown, supporting other uses in the daytime, catering to residents, or drawing people downtown in the evenings. Adjacent Activity Centers Numerous entertainment, sporting events and festivals take place at the Lane Events Center at the Fairgrounds, southwest of downtown. These activities and events dovetail with downtown restaurants, lodging and retail opportunities. These activities and other exhibit and convention events are encouraged to remain in and near downtown. The U of O provides opportunities for speakers of local, national and international reputation on a wide variety of topics, and numerous music and theatre performances. Sporting events at the U of O, specifically track, football, and basketball, draw tens of thousands from all over Eugene and further. The U of O's historic art museum is being restored and expanded, and will continue to provide a cultural resource for the community. Nearby open space areas and park facilities provide a venue for cultural activities that complement events and programs downtown. The Cuthbert Amphitheater hosts nationally known musicians in a wonderful outdoor setting. The annual Art in the Vineyard festival showcases local and regional artists in an open space in Alton Baker Park. Cultural and recreational events in these areas should be promoted as part of downtown's cultural attraction. Policies 1. Provide and promote development and community events that reinforce downtown's role as the cultural center for the city and region. 2. Reinforce the creative, distinctive culture of downtown as the arts and entertainmznt center of the city. 32 Implementation Strategies A. Collaborate with adjacent activity resources, including the U of O and the Lane Events Center at the Fairgrounds to enrich the cultural and entertainment opportunities available in and near downtown. B. Promote visitor and convention use of existing facilities in and near downtown, including exhibit and meeting spaces, lodging and restaurants. C. Encourage and support a stable arts community downtown. Review existing zoning provisions and modify if necessary to remove obstacles to creative arts activities downtown including live performance venues, artist live/work spaces, and galleries. D. Seek new public art opportunities. Include public art into building design, street design, signs, and public open spaces throughout downtown. E. Recognize the importance of Eugene's historic buildings and places with signs, plaques and pedestrian connections. Promote buildings, landmarks, or events that have distinct historical value or special assets that contribute to the character of the downtown. F. Promote continued success of the Farmers' Market, Saturday Market, and Eugene Celebration and other downtown events by supporting public/private partnerships such as Eugene in Common. G. Collaborate with the Lane County Historical Museum to encourage a downtown location. H. Research market potential and available incentives for major new cultural or recreational venues, such as a new art museum downtown. I. Provide opportunities, programming and financial tools to encourage activities along the Great Streets and in the special places downtown, including performers, art events, and street vendors. Include plans for rainy days. J. Collaborate with Lane Arts Council to encourage and market art activities downtown. K. Promote cultural and entertainment activities in parks and open space areas adjacent to downtown, including Skinner Butte Park and West Alton Baker Park. L. Enhance the 13th Avenue corridor between the Lane Events Center at the Fairgrounds, downtown, and the U of O. Projects Examples of possible projects that address the implementation strategies: · 33 · Help locate a multiplex cinema downtown · Partner with DEI for programming events at Broadway Plaza. · Work with Downtown Initiative for the Visual Arts to find a suitable location for an art museum downtown. · Install creative banners as marketing tools and directional signs. · Create an annual political speakers forum for the Wayne Morse Free Speech Plaza. 34 SAFE CIVIC CENTER The City will provide for the safety and security of downtown residents and visitors. Public safety is an essential municipal responsibility, and is a key factor in maintaining downtown's economic strength and appeal. Actual safety as well as perception of safety is paramount. People come downtown for many reasons, but they are less likely to come if they don't feel secure and respected. In turn, a vibrant, active, artful, engaging downtown, with people out and about, increases "eyes on the street" and the sense of urban well-being. Police Police activities address deterrence of criminal activity through surveillance, police presence and apprehension of individuals engaged in criminal activity. Police officers assist with safety issues and provide information about downtown. Partnering with DEI's downtown guides has increased surveillance and assistance downtown and enhanced the efficiency of the Police Department's limited resources. Community policing downtown is a major component of the Eugene Police Department's Strategic Plan. Public support is necessary to maintain a downtown Community Police Station, currently at the downtown LTD Eugene Station. A new downtown police station will be required in the near future, due to major seismic concerns and space constraints in its existing location at City Hall. An 8th Avenue address is highly desirable, but will have to be considered in light of a number of functional factors influencing its location. Fire and Emergency Medical Services Fire and EMS will soon be located in a new facility at Willamette Street and 13th Avenue for efficient access to downtown, mid-town and the West University neighborhood. Buildings downtown need to accommodate emergency vehicular access and provide adequate staging areas. This need is particularly critical adjacent to high use facilities, i.e., convention, entertainment, and multi-story structures. Space for fire fighting or EMS access needs to be considered in the design of new developments, and existing buildings may require retrofitting. Transportation Streets downtown need to be designed to favor pedestrians, but also to facilitate effective emergency vehicle access through the downtown area. Traffic calming measures need to be balanced with ease of access for emergency vehicles and equipment. As many downtown streets as possible should be converted to two-way access. As noted under Great Streets, Willamette Street should be opened through the Hult Plaza, between 6th and 7th Avenues, for emergency vehicles as well as public transit. Design for Safety Crime Prevention through Environmental Design (CPTED) looks for ways to make an environment work better and to encourage desired behaviors. CPTED concepts are applicable to public and private developments. CPTED principles focus on creating environments where people feel safe, and should be encouraged for all new development 35 downtown. Examples of CPTED measures include placement of doors for greater visibility and interaction and lighting that illuminates faces. Policies 1. Support public safety activities that increase visibility, access, actual and perceived safety for individuals and property downtown. 2. Consider design measures to enhance public safety and emergency vehicle access as an integral component of public projects, including street improvements and building construction. 3. Develop and maintain a community policing plan for the downtown area. Implementation Strategies A. Improve the safety of pedestrian routes between existing clusters of nighttime activity. B. Provide access for emergency vehicles along Willamette between 6th and 7th Avenues. C. Support public/private partnerships such as DEI and downtown guides to maintain additional surveillance and provide public assistance downtown. D. Maintain police presence downtown, through a community police station and bicycle and foot patrols. E. Consider design measures to enhance public safety and emergency vehicle access as an integral component of public projects, including street improvements and building construction. F. Work with property owners, residents and developers to address the principles of CPTED. Projects · Examples of possible projects that address the implementation strategies: · Build a new Community Police Station downtown, preferably on East 8th Avenue. · Improve downtown lighting between centers of nighttime pedestrian activity. · Develop an educational brochure focusing on CPTED principles. · Include CPTED design standards for Great Streets. 36 GETTING AROUND DOWNTOWN A well functioning transportation system is a key component of a well designed, economically healthy, livable city. Transportation goals are intricately connected to urban design and land use goals. In downtown Eugene, the transportation system needs to address issues of access and safety and also less quantifiable issues of improving downtown character, economic strength, and the quality of urban places. Streets, parking structures, sidewalks all of these are opportunities for thoughtful, interesting designs. With careful choice of paving materials, light standards, sidewalk and street alignments, these public works projects become public art opportunities. The streets that result encourage walking, and increase the perception of safety. A well designed, functional street system requires a balance of priorities. Efficient flow of traffic, on-street parking, narrower travel lanes, wide sidewalks, bike lanes, and landscaping are elements that often represent competing issues. In downtown, especially along the Great Streets, priority will be given to pedestrians. CATS The Central Area Transportation Study (CATS) provides analysis and recommendations for transportation issues affecting greater downtown Eugene. CATS includes a detailed examination of traffic circulation, on- and off-street parking, and alternative transportation modes for an area including downtown, mid-town and the West University neighborhood. The discussion in this plan focuses on the relationship of transportation issues to the economic vitality and livability of the downtown core. Recommendations for transportation system improvements in downtown will be implemented through CATS. Great Streets Great Streets are a design issue, a marketing issue, and a transportation issue. In Eugene, our Great Streets, Willamette, Broadway, 8th and 5th Avenues, are special because of their history and development patterns. These streets need a public improvement strategy and coordinated design to reinforce their character and their role of connecting special places, including downtown to the river. These streets must also serve as streets that work. They need to allow diverse modes of transport for residents, workers, shoppers, businesses and property owners. These streets need to be designed so that downtown functions well as a regional and civic center. Access and Gateways The entrances to downtown Eugene are important opportunities to improve the character and identity of downtown. Entrance beautification projects can also provide information and directions for visitors to key destination or special events. The most direct and attractive routes into downtown should be identified with appropriate signs, so that the quality of the entrance experience along these routes can be creatively enhanced. Access to the river from numerous locations downtown is critical to the success of this Downtown Plan. River connections need to be designed to minimize the impact on the 37 riparian edge, and to connect with existing routes and pathways. These connections need to be well-marked, easily visible and identifiable from downtown. Two-way Streets Many of the streets downtown function as one-way couplets, including 6th and 7th Avenues, Pearl and Oak, Lincoln and Lawrence Streets. Other streets are one-way for a portion, such as 10th Avenue or Charnelton Street. A one-way street typically can carry more traffic volume than a street that has traffic in two directions. While oiae-way streets simplify traffic operations, especially with a signalized system, the pattern may induce extra travel, force more traffic on some routes, and limit access to and from businesses. A two-way traffic operation enhances local access for all vehicles, including emergency vehicles. Two-way streets also provide better access to local shops or other destinations, making it easier to get around downtown, not just through downtown. This plan supports the conversion of one-way to two-way operation for as many downtown streets as practical. Pedestrian System A high quality pedestrian system creates a walkable downtown, enhancing the experience of downtown at a very tangible level. Sidewalks that are safe, accessibl[, and aesthetically pleasing invite pedestrian traffic, and support other goals such as downtown livability. Increased pedestrian traffic provides very real benefits to downtown, supporting retail, reducing automobile traffic, and increasing safety. Well-designed sidewalks become places for people to be, to stroll or to chat in a comfortable urban space. For our downtown to function well, a network of well-designed and maintained sidewalks is essential. Planned transportation improvements will connect the new Federal Courthouse area to the downtown commercial core with a pedestrian crossing at 8th Avenue and Mill Street. These improvements will provide a safe, convenient route along 8th Avenue from downtown east to the river. The pedestrian system needs thoughtfully placed urban design elements to create a well- designed walking environment. These elements include pedestrian amenities such as mid- crossing sanctuaries, benches, bus shelters, trash receptacles, and lights, as well as inclusion of public art. Sometimes it is the smallest details, a well-placed bench, an historic plaque, or special plantings that provide a degree of refuge, comfort or interest that makes walking in downtown a pleasure. The sidewalks on the Great Streets need a cohesive urban design scheme to set these streets apart as special places in downtown. The improvements to Broadway between Lincoln Street and Pearl Street are a good example of a well-designed pedestrian environment. Each of the other Great Streets, Willamette, 8th Avenue and 5th Avenue needs a public improvement design to enhance its unique history, identity and character. Accessibility 38 Eugene has a well-deserved reputation for accommodating individuals with disabilities. These accommodations include improvements such as textured sidewalk edges and ramps at curbs. These make downtown more welcoming and accessible for all individuals, regardless of ability. The City should continue to invest in improvements that maintain and improve accessibility downtown, and encourage developers of downtown projects to do the same. Bicycle System Bicycle riders throughout Eugene are a hallmark of our city's environmentally conscious character, and a product of local topography and climate. The number of bicycle riders increases as the practical elements required for safe and pleasurable riding are more routinely incorporated into new development and street improvements. Many of the suggested improvements for bicycles in the 1993 CATS have been accomplished. Bicycle lanes and routes have been added on several streets in the CATS area, providing improved access and increased safety for cyclists on these streets. Bicycle parking has been included with recent street improvements, and is now a required element for new buildings. Some long-term bicycle access projects remain, including improvements to Lincoln Street between 1 lth and 13th Avenues, and 10th Avenue between Oak and High, in conjunction with construction of the Bus Rapid Transit project on 10th Avenue. A new bikeway along 6th Avenue, planned in conjunction with the transportation improvements for the Courthouse area, will connect the university area to downtown, from east along Franklin and south along Hilyard. Transit System Our existing transit system facilitates travel to, through and around downtown. In addition to fixed-route service, the downtown shuttle will continue to operate at fifteen- minute intervals, with frequency increasing as ridership grows. The first Bus Rapid Transit (BRT) route is scheduled to begin operating in late 2006, and will provide a higher level of transit service from downtown Eugene to the University of Oregon and downtown Springfield. Fixed-route service will be adjusted to accommodate the addition of the BRT to the system, and coordinate with emergency vehicle access needs. Both the BRT and fixed-route service will use downtown as a transportation hub, connecting downtown to other areas of the city. A fixed-rail circulating/loop streetcar could be a potential transit and economic development strategy to link downtown, the U of O and the Courthouse district. Parking Parking is a significant tool available to the City in guiding and supporting development in the downtown area. A key strategy is to foresee, plan, and direct developments where parking is available, or provide parking where current demand and planned developments are likely to occur. In downtown, development around the new Federal Courthouse, train depot and the 5th Street Public Market area will likely create additional parking demand at the north end of downtown, where supply is barely meeting the present demand. 39 The number of surface parking lots downtown continues to diminish as development occurs, adding greater intensity of uses. In the past, the use of financial tools to assist with providing downtown parking has often been critical to the success of redevelopment for projects such as Broadway Place. The City needs to refine the parking program in the downtown area and continue to collaborate with property owners and developers to address parking demand. The location and design of parking downtown is critical. Parking areas need to be easily available near downtown destinations. On-street parking should be provided wherever practical. Entrances to parking structures and lots should be located for pedestrian safety and to maximize pedestrian activity at street level. Multi -Modal Connections Easily accessible links among different modes of transportation, as well as parking, make getting around downtown smoother. This plan supports enhanced and well marked connections between bus and shuttle routes, the train depot, and the eventual relocation of intercity and interstate bus service proximate to the train depot area. Policies 1. Develop a transportation system that supports the vision of a vital downtown and provides for the safe and efficient movement of automobiles, pedestrians, bicycles, and emergency and transit vehicles. 2. Promote and support alternative modes and accessibility through strategic planning and public investment. 3. Enhance functional designs for streets, sidewalks and related public improvements with carefully chosen design elements, including materials, alignments, plantings, and streetscape elements. Implementation Strategies A. Develop specific designs and public improvement plans to convert portions of Willamette, Broadway, 5th Avenue and 8th Avenue to "Great Streets." B. Implement the policies and strategies of CATS, including two-way street conversions, structured parking, pedestrian and bike system improvements. C. Facilitate increased residential and commercial densities within the downtown area to support increased transit, pedestrian and bicycle activity in the area. Require new developments to follow transit and pedestrian-oriented development design guidelines. 40 D. Focus continued transportation and streetscape improvements for the entire right-of- way area, from building face to building face, to improve accessibility and reduce reliance on automobile travel. E. Continue to improve existing pedestrian, bicycle and automobile connections to public riverfront areas. F. Consider a fixed rail transit or trolley system within downtown. G. Identify primary "gateway" entrances to downtown and take necessary steps to enhance the sense of entry, with particular attention to maintaining significant views. H. Create a visual directory for downtown to assist visitors and citizens in finding their destinations. I. Continue to improve and simplify parking lot directory signs, cost information and methods of payment. Projects Examples of possible projects that address the implementation strategies: · Create a grade-level pedestrian crossing at the intersection of 8th Avenue and Mill Street. · Convert 10th Avenue to a two-way street. · Conduct a "walkability" assessment to determine needed pedestrian improvements in downtown. · Construct a bicycle path along the new 6th Avenue extension between Franklin Boulevard and Hilyard Street and 6th Avenue and High Street. · Provide a prominent entrance to downtown from East Broadway near Mill Street. · Construct a new parking garage to support the east side of downtown and the new Courthouse district. 41 EPILOGUE: MAKING IT HAPPEN Our downtown is a regional center, and a walkable collection of special places and special times. It is also everybody's neighborhood, with events and services for the entire city. Downtown is what is "Eugene" about Eugene - a synergistic, creative, accessible place, a downtown of short distances and friendly faces. The character of downtown has changed over the past twenty years, as Eugene has grown in population and area. Downtown is and will remain the center of Eugene, giving an identity and character to the city, and a coming together place for the entire community. The policies and ideas in the Downtown Plan promote a vision for a strong, active, distinctive urban center. For this plan to be meaningful, it has to result in actions and investment that bring about the desired transformation of downtown that this community envisions. The plan reinforces our commitment to a strategic, proactive, collaborative approach, creating partnerships, working with private developers, and using the financial resources available to the City. The plan will help the City make choices for the future. The plan is specific in terms of outcomes, promoting the use of economic tools to leverage desired development, and giving priority to Great Streets and special places. The plan encourages additional housing in and around downtown, but notes the primacy of commercial office space downtown to provide jobs and to support housing and retail opportunities. The plan requires a master plan for the EWEB waterfront property, and lays out principles for that effort. The plan is flexible to provide direction for decisions without overly prescribing actions or projects. In the future, new opportunities and priorities will emerge. The construction of a new hospital or Federal courthouse was not anticipated even a few years ago. The city will change and grow in ways that cannot be predicted. But our vision for downtown as the center of our community will hold true. Based on the framework of the plan, and a little Eugene serendipity, we will strengthen the economic vitality and the special character of our downtown. We will recognize and create opportunities to bring our collective vision for downtown to life. 42 APPENDIX Summary of Policies I. Strong Regional Center 1. Build upon downtown's role as the center for government, commerce, education and culture in the city and the region. 2. Downtown development shall support the urban qualities of density, vitality, livability and diversity to create a downtown, urban environment. II. Building a Downtown 1. Actively pursue public/private development opportunities to achieve the vision for an active, vital, growing downtown. 2. Use downtown development tools and incentives to encourage development that provides character and density downtown. 3. Facilitate downtown development by re-designating and rezoning underutilized properties, such as surface parking lots, to commercial land use designation and a commercial zone such as C-2 or C-3. III. Great Streets 1. Emphasize Broadway, Willamette Street, 5th and 8th Avenues as Great Streets through public improvements and development guidelines. Include portions of these streets as follows: · Willamette between 5th and 13th Avenues · Broadway between Lincoln and Hilyard · 5th Avenue between Lincoln and High Street (with potential extension to the Willamette River) · 8th Avenue between Willamette Street and the Willamette River 2. Strongly encourage the location of significant municipal, county, state and federal buildings along 8th Avenue. IV. Special Places 1. Enhance public places throughout downtown through the careful design of civic buildings, streetscapes, parks and plazas. Include public art and other elements to create special places for all ages. 43 2. Connect special places downtown with enhanced street designs, public art, directional signs, transit routes, and historic markers to create an inviting and memorable route through downtown. 3. Promote adjacent park and open space areas as a valuable complement to downtown's urban places. Improve connections between downtown and nearby nature areas. 4. Encourage listing of appropriate structures and sites of historic importance in the National Register of Historic Places or as City of Eugene Historic Landmarks. V. Living Downtown 1. Stimulate multi-unit housing in the downtown core and on the edges of downtown for a variety of income levels and ownership opportunities. 2. 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. VI. Downtown to the River 1. Incorporate the Willamette River as an integral element to downtown planning and development. 2. Collaborate with EWEB to encourage relocation of their utility facilities. 3. A master plan for the EWEB riverfront property must be approved by the city before any redevelopment, land use application, rezoning, Metro Plan or refinement plan diagram amendments are approved for uses not associated with EWEB functions. The master plan shall be evaluated based on the master plan's consistency with principles A through D below: A. Create a "people place" that is active, vibrant, accessible and multi-use. B. Provide appropriate setbacks, deeper where environmental or habitat issues are more critical, shallower in other areas. C. Incorporate appropriate building and site design techniques that address environmental concerns. D. Incorporate an educational aspect, so that the riverfront improvements teach us about our river, our history and our city. The master plan shall be considered using the City's Type II application procedures, unless the applicant elects to have the master plan reviewed concurrently with a Type III, Type IV or Type V application. 4. Facilitate dense development in the Courthouse area and other sites between the core of downtown and the river. 44 VII. Cultural Center 1. Provide and promote development and community events that reinforce downtown's role as the cultural center for the city and region. 2. Reinforce the creative, distinctive culture of downtown as the arts and entertainment center of the city. VIII. Safe Civic Center 1. Support public safety activities that increase visibility, access, actual and perceived safety for individuals and property downtown. 2. Consider design measures to enhance public safety and emergency vehicle access as an integral component of public projects, including street improvements and building construction. 3. Develop and maintain a community policing plan for the downtown area. IX. Getting Around Downtown 1. Develop a transportation system that supports the vision'of a vital downtown and provides for the safe and efficient movement of automobiles, pedestrians, bicycles, and emergency and transit vehicles. 2. Promote and support alternative modes and accessibility through strategic planning and public investment. 3. Enhance functional designs for streets, sidewalks and related public improvements with carefully chosen design elements, including materials, alignments, plantings, and streetscape elements. 45 Community Partnerships Members of the community have been very involved in this plan concern and commitment for a healthy downtown is very strong. The community involvement has been extensive and multifaceted, ranging from city initiated events such as design workshops for the Downtown Vision and Courthouse District Concept Plan, to citizen initiated discussions, such as the City Club series on downtown planning. Citizens have been involved in both long term vision discussions and specific design decisions. A list of relevant projects and planning documents is included below. Numerous organizations and agencies have partnered with the City in the development and review of the updated Downtown Plan. These include EWEB, University of Oregon, Lane Transit District, and the Oregon Department of Transportation. These organizations have overlapping interests and commitment, and all have a stake in healthy downtown. Relationship to Other Plans and S[udies This plan updates and replaces the Eugene Downtown Plan, approved in 1984. This plan is a refinement to the Eugene Springfield Metropolitan Area General Plan (Metro Plan). The plan is generally based on the Downtown Vision, which was approved in 2000. The policies included in this Plan will direct future actions, including land use decisions and public and private investment in downtown. The Downtown Plan is not the only document guiding actions and decisions in downtown. Other adopted refinement or functional plans, such as the Central Area Transportation Study and the Skinner Butte Master Plan, also apply downtown, in addition to city-wide documents such as the Growth Management Policies and the Stormwater Basin Master Plans. As appropriate, policies and policy direction from other recent plans and studies are reflected in the policies in this plan. A list of those planning documents is provided below; adopted policy documents are shown in bold. These documents provide a finer level of information and detail about particular areas or project downtown, and are available through the City of Eugene Department of Planning and Community Development. Where the policies of this plan conflict with adopted policies in previous plans, this most recent plan prevails. 1. Central Area Transportation Study (anticipated adoption in 2004) 2. Skinner Butte Park Master Plan, 2002 3. Stormwater Basin Master Plan, 2002 4. Courthouse District Concept Plan, July, 2002 5. A Vision for Greater Downtown Eugene (Downtown Vision), November, 2000 6. Eugene Parks Blocks Placemaking Final Report, July, 2000 7. Eugene-Springfield Metropolitan Area Residential Land and Housing Study Policy Recommendations Report, August 1999 8. North End Scoping Group, June 1999 9. Growth Management Study, February 1998 10. Ferry Street Corridor Conceptual Study, June 1995 11. Vision for Downtown Eugene 2015, February 1995 12. South Bank Conceptual Study, September 1994 46 13. Whiteaker Plan, August 1994 14. Central Area Transportation Study, 1993 15. Eugene Commercial Lands Study, October 1992 16. Downtown Core Area Historic Context Statement, November 1991 17. University of Oregon Long Range Campus Development Plan, June 1991 18. Partnerships for Public Safety Long-range Plan, April 1991 19. Site Development Guidelines for Downtown Eugene, January 1991 20. Retail Task Force Urban Renewal Plan, Central Eugene Project, June 1990 21. Eugene Parks and Recreation Plan, July 1989 22. City of Eugene Economic Development Strategic Plan, May 1988 23. Eugene/Springfield Metropolitan Area General Plan, 1987 Update 24. Urban Renewal Plan for Central Eugene Project, June 1987 25. Entrance Beautification Study, April 1987 26. Downtown Development Strategy for the Urban Renewal Plan Update, January 1987 27. Eugene Downtown Public Spaces, April 1986 28. Riverfront Park Study, January 1986 29. Eugene Downtown Plan, October 1984 47 ATTACHMENT D ALTERNATIVE DRAFT POLICY LANGUAGE (1) Strong Regional Center. (a) All new development should f~,build upon downtown's role as the center for government, commerce, education and culture in the city and the region. (Policy 1 ) (b) All Ddowntown development should sh~ll support the urban qualities of density, vitality, livability and diversity to create a true downtown, urban environment. (Policy 2) (2) Building a Downtown. (a) All downtown developers should Aactively pursue public/private development opportunities to achieve the vision for an active, vital, growing downtown. (Policy 1) (b) The city and EWEB should [Juse downtown development tools and incentives to encourage development that provides character and density downtown. (Policy 2) (c) The city and downtown property owners should F-facilitate downtown development by re-designating and rezoning underutilized properties, such as surface parking lots to commercial land use designation and a commercial zone such as C-2 or C-3. (3) Great Streets. (a) The city should E-emphasize Broadway, Willamette Street, Fifth and Eighth Avenues as Great Streets through public improvements and development guidelines. Include portions of these streets as follows: 1. Willamette between Fifth and Thirteenth Avenues. 2. Broadway between Oak and Hilyard. 3. Fifth Avenue between Lincoln and High Street (with potential extension to the Willamette River). 4. Eighth Avenue between Willamette Street and the Willamette River. (Policy 1 ) (b) The city should Sstrongly encourage the location of significant municipal, county, state and federal buildings along Eighth Avenue. (Policy 2) (4) Special Places. (a) All development of F,-,h3,-,cc public places throughout downtown should be enhanced through the careful design of civic buildings, streetscapes, parks and plazas~, including public art and other elements to create special places for all ages. (Policy 1) (b) The city should Cconnect special places downtown with enhanced street designs, public art, directional signs, transit routes, and historic markers to create an inviting and memorable route through downtown. (Policy 2) (c) The city should Ppromote adjacent park and open space areas as a valuable complement to downtown's urban places. Improve connections between downtown and nearby nature areas. (Policy 3) (5) Living Downtown. (a) The city should Sstimulate multi-unit housing in the downtown core and on the edges of downtown for a variety of income levels and ownership opportunities. (Policy 1) (b) The city should Rreinforce 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. (Policy 2) (6) Downtown to the River. (a) All planning and development in downtown should J, incorporate the Willamette River as an integral element of downtown. (Policy 1) (b) The city should C, collaborate with EWEB to encourage relocation of their utility facilities. (Policy 2) (d) The city should Ffacilitate dense development in the Courthouse area and other sites between the core of downtown and the river. (Policy 4) (7) Cultural Center. (a) The city should Pprovide and promote development and community events that reinforce downtown's role as the cultural center for the city and region. (Policy 1) (b) The city should Rreinforce the creative, distinctive culture of downtown as the arts and entertainment center of the city. (Policy 2) (8) Safe Civic Center. (a) The city should Ssupport public safety activities that increase visibility, access, actual and perceived safety for individuals and property downtown. (Policy 1 ) (b) The city should Gconsider design measures to enhance public safety and emergency vehicle access as an integral component of public projects, including street improvements and building construction. (Policy 2) (9) Getting Around Downtown. (a) The city should Ddevelop a transportation system that supports the vision of a vital downtown and provides for the safe and efficient movement of automobiles, pedestrians, bicycles, and emergency and transit vehicles. (Policy 1 ) (b) The city should Kkeep downtown Eugene in the forefront of alternative modes and accessibility accommodation through strategic planning and public investment. (Policy 2) (c) Wherever possible, the city should enhance functional designs for streets, sidewalks and related public improvements with carefully chosen design elements, including materials, alignments, plantings, and streetscape elements. EUGENE CITY COUNCIL AGENDA ITEM SUMMARY Work Session: An Ordinance Concerning the Downtown Area; and Proposed Amendments to Sections 3.344, 4.871, and 4.872 of the Eugene Code, 1971 Meeting Date: April 12, 2004 Agenda Item Number: C Department: Police Department Staff Contact: Robert M. Lehner www. cl. eugene, or. us Contact Telephone Number: 682-5808 AGENDA ITEM SUMMARY This is a work session to review changes made to the Eugene Code by Ordinance No. 20303, concerning the Downtown area. The proposed changes include amending the definition of commercial pursuits, adding the definition of admissions and removing the permit requirement for non-commercial gatherings of over 25 people. BACKGROUND Council Action History Eugene Code sections governing activities on the downtown mall have been in place since 1972, and have been amended several times over the years. During some of the time that Eugene had a downtown mall, the code allowed a police officer to issue a notice of 60-day exclusion to persons who committed criminal offenses, and it also imposed a nighttime closure of Broadway, from Charnelton Street to Oak Street, between 1:00 a.m. and 6:00 a.m. These provisions were repealed by the sunset provision in Ordinance No. 20232. The most recent amendments, adopted on November 24, 2003, by Ordinance No. 20303, eliminated all references to the former downtown mall and designated a downtown activity zone and a downtown core area. The ordinance was designed to regulate behavior in the core area in a manner appropriate to a high-use downtown commercial/residential area. The ordinance did not reinstate the previous mall exclusion and it reduced the area subject to the nighttime closure. Policy Issues Should the Downtown Ordinance be amended to remove regulations on activities and gatherings that are not related to commercial pursuits? Council Goal Action Priority The proposed downtown ordinance addresses the council's Safe Community goal. It also supports efforts to retain "a high quality of life and a healthy economy" and to "manage growth and change in the urban environment" as expressed in the Sustainable Community Development goal. Financial and/or Resource Considerations None. L:\CMO\2004 Council Agendas\M040412\S040412C.doc Other Background Information For the past 30 years, Eugene's downtown mall has been viewed as an area requiring some level of regulation to maintain the area in a manner that is conducive to a harmonious blend of civic, social, cultural, residential and economic pursuits. Regulation has been used to help maintain the area's balance of public and private interests with the goal of encouraging a pleasant place for civic and cultural events combined with commercial activities. In January 2004, the council asked the City Manager to revisit the ordinance as adopted on November 24, 2003, for the purpose of clarifying commercial versus non-commercial activities. Over the past weeks, city representatives and interested community members have met with the city attorney to discuss changes that could be made to temporary Administrative Rule R-3.336, adopted by Administrative Order No. 21-03-15, to resolve several problematic issues that had been identified. Following a positive meeting with a community coalition, the city attorney worked to revise both the Eugene Code concerning the downtown area, and Administrative Rule R-3.336 to remove all language not linked to commercial activities. In subsequent meetings, city representatives and community members were able to more clearly focus the areas of concern and reach agreement on a strategy to resolve these concerns while ensuring that the City of Eugene could provide necessary management of the Downtown area. This strategy has been applied to the draft Downtown Ordinance, (Attachment A) which has been amended to clearly apply only to commercial activities. All discussion of non-commercial gatherings, whether spontaneous or planned, has been removed from the draft ordinance. In addition, the charging of admission has been clarified as a determining factor in defining an activity as a "commercial event" which would be regulated by the ordinance. This removes "entertainment events" for which there are no admission charges from regulation by the Downtown Ordinance. Following the adoption by City Council of revisions to the Eugene Code concerning the Downtown area, Administrative Rule R-3.336 will be updated to correspond with the new ordinance. Within the next few months, discussion will also begin to develop a second ordinance that is currently being referred to as a "Parade/Gathering Ordinance." The development of this new ordinance will provide an opportunity for city representatives to work with the community coalition to design an effective process to facilitate parades and gatherings on public property. Essentially, by eliminating non-commercial gatherings from the Downtown Ordinance and Administrative Rule R-3.336, an opportunity has been created to resolve the issues of the size of gatherings, to re-focus the need for permits into the same context as all similar city processes (such as facility or park rentals), and to eliminate the need for insurance coverage for most small or spontaneous activities. Timing This is a work session only. Tentative dates for this item have been scheduled for a public hearing on May 10 and City Council action on May 24, 2004. OPTIONS The council has several options: 1. Proceed with the public hearing scheduled for May 10, 2004. 2. Make no changes to the Eugene Code concerning the Downtown area. 3. Identify additional modifications to the draft ordinance that staff should address prior to a public hearing. L:\CMO\2004 Council Agendas\M040412\S040412C.doc STAFF RECOMMENDATION Staff recommends that the council proceed with the public hearing on May 10, 2004. SUGGESTED MOTION No motion is necessary; this is a work session. ATTACHMENTS A. Revised Draft Ordinance FOR MORE INFORMATION Staff Contact: Robert M. Lehner, Chief of Police Telephone: 541-682-5808 Staff E-Mail: robert.m.lehner~ci.eugene.or.us L:\CMO\2004 Council Agendas\M040412\S040412C.doc ATTACHMENT A ORDINANCE NO. AN ORDINANCE CONCERNING THE DOWNTOWN AREA, AND AMENDING SECTIONS 3.344, 4.871 AND 4.872 OF THE EUGENE CODE, 1971. THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS: Section 1. Subsections (4)(a), (b) and (c) of Section 3.344 of the Eugene Code, 1971, are amended as follows: 3.344 Private Commerce on Public Property - Specific Authorized Activities. (1) Sidewalk Commerce, (a) Sidewalk commerce licenses shall be restricted to vending locations located within a geographical area on Kincaid Street from 100 feet north of 12th Avenue to 100 feet south of 13th Avenue. In assigning a vending location, the city shall consider the following: 1. Any license operating area requested by the applicant; 2. The licensed activities of any other sidewalk commerce enterprise in the same license operating area; 3. Other sidewalk uses in the license operating area; 4. The public health and safety, including the possibility of restricted visibility for persons using the public way; 5. Compatibility of the request with rules adopted under this chapter. (b) A vending location may be assigned upon compliance with section 3.338 of this code. (c) If the city manager finds that a sidewalk within a license operating area is being fully utilized for its primary purpose of pedestrian traffic, or that the issuance of a sidewalk commerce license will have an adverse impact on the primary use of the sidewalk because of existing levels of pedestrian use, the city manager may restrict or prohibit the issuance of sidewalk commerce licenses for a specified license operating area. (d) At no time shall the city issue more than six sidewalk commerce licenses for a license operating area. (2) Street Vendor. (a) A street vendor shall: Ordinance- l L:\CMO\2004 Council Agendas\M040412\S040412C-attA. doc(03/16/04) 1. Sell, offer for sale, or distribute only the items approved by the city; 2. Conduct business only from a vehicle legally parked alongside the curb; 3. Comply with all applicable federal, state and local laws and regulations. (b) A street vendor shall not: 1. Conduct business in such a way as to restrict or interfere with the enjoyment or use of property by nearby property owners or occupants; 2.Increase traffic congestion or delay; 3.Create a hazard to life or property; 4. Stop on the traveled portion of any street or in any bicycle lane; 5. Stop in one location for more than [f~e] fifteen minutes within the same hour while conducting business. (3) Outdoor Cafes. (a) The city manager or the manager's designee, may issue a permit for an outdoor cafe allowing the service of food or beverages within a public right of way provided the following conditions are met: 1. The permit applicant assumes all risks associated with the use of the right of way; 2. The permit applicant lawfully operates a restaurant adjacent to the right of way for which the applicant seeks a permit; 3. The owner of the restaurant property consents to issuance of the permit; 4. The permit applicant demonstrates that the use of the right of way will not interfere with existing utilities, pedestrian use of the right of way nor pose a hazard to vehicular traffic; 5. The permit applicant obtains all other necessary state and local permits; 6. If the applicant seeks to use the right of way in front of properties contiguous to the restaurant, the applicant demonstrates that a restaurant is a permitted use for the contiguous property and the owner of the contiguous property consents to the issuance of the permit; 7. The permit applicant demonstrates that the use of the right of way will comply with all ordinances and codes of the city including but not limited to the structural safety, sanitation and fire codes; 8. The permit applicant demonstrates that seating in the right of way will be provided for no more than 20 persons or, if seating is provided for a greater number that off-street parking as required by chapter 9 of this code is provided in a Ordinance - 2 L:\CMO\2004 Council Agendas\M040412\g040412C-attA. doc(03/16/04) ratio of no less than one parking space for each 4 seats over and above 20. This subsection does not apply to outdoor caf~ permits in the downtown activity zone, as that term is defined in section 4.871 of this code; 9. The permit applicant demonstrates that the proposed use of the right of way is not inconsistent with the use for which the right of way was dedicated to the city. (b) No outdoor cafe permit shall be issued for premises located within the downtown activity zone as defined by section 4.871 of this code except by an activity permit issued pursuant to section 3.341 of this code. (c) A permit issued pursuant to section 3.341 of this code may be temporarily suspended if the public interest requires use of the right of way for a public event, construction, repair, or any other purpose. (4) Downtown activity zone. Words and phrases used in this subsection shall have the meanings ascribed to them in section 4.871 of this code. (a) Except for participants in a city-sponsored event, no person or business shall conduct any of the following activities on public pedestrian areas within the downtown activity zone without first receiving an activity permit pursuant to section 3.341 of this code: 1. Any commercial pursuit except for personal solicitation, fund raising activities which do not involve the sale of goods, and street entertainment. 2. Placing a display or allowing a display in one's charge to remain. 3. [An '~-'*'~-*o~ .... * ..... * ~ An activity, event, or performance for which admission is charged, and that occurs in or upon a specific area of public property which the coordinator or sponsor desires to reserve for its exclusive use. [,~]4. Creating or continuing a noise disturbance. (b) A permit shall be valid for the period of time specified on the permit, not to exceed six months, with the exception of a pushcart permit, which may not exceed one year. (c) Except for pucsu~] the sale of written material, distribution of written material may occur without obtaining an activity permit. Distribution of written material is allowed provided any person making the distribution removes all distributed material discarded or abandoned on any part of the downtown activity zone within 200 feet of each place where the written material was distributed. Ordinance - 3 L:\CMO\2004 Council Agendas\M040412\S040412C-attA. doc(03/16/04) Such removal shall occur every four hours or when distribution ceases, whichever first occurs. Failure to promptly remove such material may result in the city performing the removal required of the distributor and billing and collecting the cost from any person responsible. Any person or organization which fails to remove discarded written material distributed by that person or organization shall have committed a violation of this code. (d) An owner or person in charge of property or a business located within the boundaries of the downtown activity zone shall keep free from litter or other debris those portions of sidewalks that abut the property or business. Section 2. The definitions for "Authorized activity," "Commercial pursuits," and "Display" are amended, a definition for "Admission" is added, and the definitions are arranged in alphabetical order, to Section 4.871 of the Eugene Code, 1971, as follows: 4.871 Downtown Activity Zone - Definitions. For purposes of sections 4.870 to 4.872 of this chapter, the following words shall have the meanings ascribed to them by this section: Admission. A monetary fee charged for the privilege of attending, observing, or participating in an activity, event, or performance occurring in or upon public pedestrian areas in the downtown activity zone. "Admission" includes a monetary fee charged on a fixed basis or a donation basis. The charging of "admission" prevents those persons who have not paid the monetary fee from accessing the area in which the activity, event, or performance is occurring. Where access to the area is not restricted, "admission" does not include soliciting donations during an activity, event, or performance. Authorized activity. Any activity for which a downtown activity permit [may issue] has been issued or a city-sponsored activity. City manager. The city manager or the city manager's designee. City-sponsored event. An activity carried out by a city employee in the performance of assigned duties or an activity authorized by the city manager or city council to use the city's name. Commercial pursuits. Any activity related to or connected with trade, commerce or fund raising involving the receipt of money or property, such as, but not limited to: advertising, displaying, distributing, selling, taking orders or offering to sell or take orders for goods or services; providing a place for customers to sit; fund raising activities; r,~,,,,~r,o~ .... , ..... , .... ~,~r,~ activities, events, and performances for which admission is charged [~ Ordinance - 4 ].:\CIV[O\2004 Counci! Agcndas\iV[0404]2\g0404]2C-attA. doc(03/]6/04) , .+;i;+ ...... ; .... + ~,-,,-4 ~o,-,;I;+;,~o.1 activities related to construction or demolition on abutting private premises. Display. Visual portrayals or physical objects affixed to or standing upon public property within the downtown activity zone, including but not limited to signs, pictures, markers, inscriptions, and objects that are inanimate or mechanically or electronically animated but which remain stationary in location. Downtown activity permit. A permit applied for and issued in accordance with section 3.341 of this code. Downtown activity zone. Publicly-owned property and rights-of-way located within the area bounded by the centerlines of Sixth Avenue, Lincoln Street, Eleventh Avenue, and High Street, including all public improvements located therein. Downtown core. Publicly-owned property and rights-of-way located within the area bounded by a line that runs from the intersection of 10th Avenue and Pearl Street, north to 8th Avenue, west on 8th Avenue to Lincoln Street, south on Lincoln Street to 10th Avenue, east on 10th Avenue to Charnelton Street, south on Charnelton Street to 11th Avenue, east on 11th Avenue to Willamette Street, north on Willamette Street to 10th Avenue, and east on 10th Avenue to Pearl Street, including sidewalks on both sides of the streets and avenues that define the area and all public improvements located therein. Fund raising. Actions which directly or indirectly request anything of value from persons with whom the requestor has not been previously associated as a family member, friend or companion, and the resulting proceeds are given to a person, entity or organization other than the person engaged in the fund raising activity. "Fund raising" does not include personal solicitation. Impede. To prevent progress or movement, or to engage in an activity that would deter a reasonable person from progressing or moving in the area of the activity. Interferes with. A person "interferes with" an authorized activity if that person does one or more of the following: (a) Enters in or upon and uses an area of the downtown activity zone which has been reserved for an authorized activity for a purpose other than in accordance with the authorized Ordinance - J~ (b) Engages in conduct which imminently threatens to cause or causes a speaker or performer to cease speaking or performing or threatens to cause or causes an audience to be unable to hear the speaker or performer(s); (c) Except when viewing or participating in an authorized activity, engages in conduct within 20 feet of an authorized activity which prevents reasonable people with normal sensitivities participating in the properly authorized activity from carrying on a normal conversation. Newspaper dispenser. A box or other vending device that displays, holds or dispenses newspapers, flyers, brochures, pamphlets, newsletters or other written materials to the public, with or without requiring payment, and is intended to remain stationary in location. Noise disturbance. A noise disturbance which is plainly audible to two or more persons who are located within a room with all windows and doors to the outside shut which is in a building open for business and is located within the boundaries of or is abutting the downtown core. The definitions of section 4.080(1 ) of this code shall apply to this [subpar4] definition. Permittee. Includes any person designated as the applicant in the application for the downtown activity permit and any employee, agent, representative or volunteer assisting with an authorized activity. Public pedestrian area. Any public sidewalk, alley, plaza, and park, excluding public areas under the primary control of entities other than the city. It also includes public streets during the time streets are closed to vehicular traffic for a city-sponsored or permitted event. Street entertain[er]ment.LrTA', ,, ..... ,.,,., .,, ¢,,.,.,.,, ...... ~. ....... ] The conducting of, presenting, or participating in musical, theatrical, cinematic, choreographic or athletic performances [to ..... ,4~ ..... ~ ,,,-,, .... ,~o,,, ..... ,,, ~ ........... ] for which no admission is charged, and no specific area of public property is reserved for its use. Written material. Any literature, pamphlet, packaging or similar material intended to communicate any message through writing. Section 3. Subsection (1) of Section 4.872 of the Eugene Code is amended by deleting subsection (e) and re-lettering subsections (f) and (g) to (e) and (f) respectively; and subsection (2)(g) of Section 4.872 of that Code is amended as follows: 4.872 Downtown Activity Zone - Prohibited Acts. Ordinance - 6 L:\CMO\2004 Council Agendas\M040412\S040412C-attA. doc(03/16/04) (1) Except when approved as part of an authorized activity, the following acts are prohibited in the public pedestrian areas within the downtown activity zone: (a) Interfering with an authorized activity. (b) Impeding access to any public pedestrian area or to any public or private building adjacent to the public pedestrian area. (c) Engaging in a commercial pursuit, except for personal solicitation and street entertainment. (d)Placing a display. ([~]e) Placing a newspaper dispenser: 1. Within ten feet of a street corner; 2. Within one foot of a street curb; 3. Within one foot of, or connected or affixed by any means to, a sidewalk fixture, such as a light pole, bicycle rack, planter, bench or art work; 4. Except with the permission of the person in charge of the building, between the central traveled portion of the adjacent sidewalk and any window abutting a public pedestrian area; or 5. Within the central traveled portion of the sidewalk or in any other location likely to impede pedestrian traffic. ([g]~Setting up or operating a public address system or other amplified sound equipment. (2) In addition to the acts prohibited in subsection (1) of this section, except when approved as part of an authorized activity, the following acts are prohibited in the public pedestrian areas in the downtown core: (a) Climbing any tree. (b) Except for stai~ays, climbing any structure that is more than six feet in height on any side. (c) Climbing any structure in such a manner as to create a danger of personal injury or property damage. (d) Leaving a dog or other animal unattended, whether leashed or unleashed. (e)Creating or continuing a noise disturbance. (f) Entering into a landscaped planting area or acting in a manner harmful to any plant life, including walking, lying or sitting in a landscaped planting area. A "landscaped planting area" is any public area set aside for planting of trees, shrubs, flowers or other vegetation, except grass. (g) Setting up any temporary structures or enclosures, including but not limited to canopies, tents or tables, or restricting access to any potion of the pubfic pedestrian area so that other persons may not freely enter such area. (h) Picking or cutting flowers or other vegetation from landscaped planting areas. (i) Allowing a child who is in one's charge and is under 12 years old to violate any provision of this section or of section 3.344. (j) Entering or remaining on the Broadway Plaza (as defined in Resolution No. 4505) portion of the public pedestrian areas Ordinance - 7 L:\CMO\2004 Council Agendas\M040412\S040412C-attA. doc(03/16/04) between the hours of 11:00 p.m. of one day and 6:00 a.m. of the succeeding day, except that moving through the plaza without stopping is not prohibited. The prohibition of this subsection (j) may be enforced in the same manner as enforcement of the adopted Park and Open Space Rules, including issuance of a notice of restriction of use to violators. Section 7. The City Recorder, at the request of, or with the concurrence of the City Attorney, is authorized to administratively correct any reference errors contained herein or in other provisions of the Eugene Code, 1971, to the provisions added, amended or repealed herein. Passed by the City Council this Approved by the Mayor this day of ,2004. ~ day of ., 2004. City Recorder Mayor Ordinance - g L:\CMO\2004 Council Agendas\M040412\S040412C-attA. doc(03/16/04)