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HomeMy WebLinkAboutOrdinance No. 19952 ORDINANCE NO. 19952 AN ORDINANCE AMENDING THE BETHEL-DANEBO .REFINEMENT PIAN. The City Council of the City of Eugene finds that: 1. The Bethel-Danebo Refinement Plan was adopted by the City Council by Resolution No. 3716 on September 13, 1982. 2. On May 4, 1993, GraviIle Properties requested classification of a proposed amendment to the Bethel-Danebo Refinement Plan. The Planning Division referred the request to the chair of the Active Bethel Citizens for consideration. 3. The Planning Commission reviewed the proposed amendment on June 7, 1993 and classified it as a minor plan amendment. This action allowed Graville Properties to submit a formal plan amendment application, which it did on September 2, 1993. 4. On October 7, 199~ the Planning Division provided notice of the official application to the Active Bethel Citizens and written notice was mailed to the owners and occupants of property within 400 feet of the subject property. On October 22, 1993 a display ad appeared in the Register Guard advertising the Planning Commission's public hearing. s. The Planning Commission conducted a public hearing on the proposed plan amendment on November 2, 1993. Based on the written record, including the staff report and the findings contained therein, and public testimony, on November 29, 1993 the Planning Commission recommended revisions to the plan amendment, and submitted the revised plan amendment to the Council for its approval. 6. The City Council held a public hearing on the proposed plan amendment as recommended by the Planning Commission on January 31, 1994, and revised item 6 on page 7 of the Planning Commission's recommendation. The plan amendment as revised by the Planning Commission and Council is attached hereto as Exhibit A, and should be approved. 7. Based upon the written record and testimony at the public hearings, the proposed amendment is found to be consistent with the Eugene-Springfield Metropolitan Area General Plan, the Eugene Commercial Lands Study, and the unamended portions of the Bethel-Danebo Refinement Plan. 8. The proposed amendment will not affect the overall land use allocations in the Metropolitan Area General Plan or the Bethel-Danebo Refinement Plan. Ordinance - 1 B. Barger-Beltline Development Node The Barg~r-Beltline development node involves approximately 92 acres of ~arid, 'which includes 5 acres of commercial, 16 acres of high-density residential, and 71 acres of medium-density residential (see map on page 10). High-density residential development exceeds a density of 20 units per acre, as opposed to medium-density residential, which has a density of between 10 and 20 units per acre. It was recognized that, based on future population needs, medium- and high-density allocations shown on the diagram may not be needed in the near future; howev~r, specific, sites should be protected to meet future long-range needs. In its review of this development node, the plan provides for 5 acres of com- mercial property north of Barger Avenue and adjacent to 9 acres of existing commercial zoning and development now located on the south side of Barger Avenue at its intersection with Beltline Road. The logic for this location is based on inventories of existing commercial development in the area. Community Commercial zoning and development is located in the strip commercial area along Highway 99 North, extending from Roosevelt Boulevard continuously north to within a few hundred feet south of Barger Avenue. Much of this commercial land has been developed to a high intensity; however, located sporadically in this area are vacant or underused parcels. The proximity of the commercial development along . Highway 99 North, beginning south of Barger Avenue, is approximately three- quarters of a mile east from the existing commercial development located at the intersection of Barger Avenue and Beltline Road. Policies set forth by the Metropolitan Area General Plan are intended to discourage strip commercial patterns.' Proposed and existing high-density residential area in the northwest portion of -Eugene (Bethel-Danebo area) is limited to the proposed 16 acres of high-density residential use allocated for the Barger-Beltline development node. The balance_ of this node) or approximately 71 acres, would be set aside for medium-density residential development. Medium-density housing in the Bethel-Danebo area is limited to development in and around the Gilbert Shopping Center, which is located in the immediate vicinity of Fairfield Street and Highway 99 North. In recent years, a number of multi-family housing developments have taken place, such as Sorgenfri,. Sorgenfri Nord, landsby Place, and Solvang. These projects and other medium-density residential development existing in the Bethel-Danebo area are basically confined to the approximately 17 acres located in the immediate vicinity of Fairfield Street and Highway 99 North. Within the strip commercial area along Highway 99 North are a few older motels which have kitchen facilities, allowing weekly and Inonthly accommodations. The separation between the Barger-Beltline development node and the medium-density residential node located near Fairfield Street and Highway 99 North is approximately two miles. The Barger-Beltline development node, as proposed, would provide a good balance in commercial and medium-density residential uses with existing and proposed commercial areas and multiple-family,' housing throughout the Bethel-Danebo area. The map on page 4 notes the locati.ons of the various commercial-residential nodes. existing or proposed, providing a visual distribution of these areas. Additional support for these land-use allocations is found in the Technical Summary of the Metro Plan. -7- 1-29 NO~ THEREFORE, THE CI'lY OF EUGENE DOES ORDAIN AS FOLLOWS: Section 1. The above findings are adopted. Section 2. The text accompanying the Barger-Beltline Development Node of the Bethel-Danebo Refinement Plan and the Land Use Diagram on page 11 of the Plan is amended as shown on Exhibit A attached hereto and incorporated herein by reference. Section 3. Except as herein amended, a]} other provisions of the Bethel-Danebo Refinement Plan remain in full force and effect. Passed by the City Council this Approved by the Mayor this 31st day of January, 1994 31st day of January, 1994 !f~ tJ ' 117 City Recorder . ~fl, CBCU1/fWU/ Mayor Ordinance - 2 . EXHIBIT A FINDINGS and CONCLUSION of the EUGENE PLANNING COMMISSION REVISED PRELIMINARY STAFF NOTES I. PUBLIC HEARING ON AMENDMENT TO REFINEMENT PLAN Graville Properties (RA 93-1) Tax lots 3100, 3200, and 3300--Assessor's Map 17-04-15-0 0; and Tax lots 100 and 200-- Assessor's Map 17-04-16-4 4 Located along the north side of Barger Drive, between Empire Park Drive on the east and Beltline Road on the west. Request is an amendment to the text and proposed land use designation pertinent to the Barger- Beltline development node in the Bethel-Danebo Refinement Plan. Applicant: Windsor Graville Backaround and Present Reauest The applicant is requesting an amendment to the Barger-Beltline development node located on the north side of Barger Orive between Highway 99 North and west to Beltline Road. The Bethel-Danebo Refinement Plan, adopted in September 1982, provided written text, e.g., pol icles and proposal's, and a graphic delineation of the development node which contains approximately 99.6 acres. The map on page 11 of the Bethel-Danebo Refinement Plan provides a graphic display of the various proposed land uses for the site. This is supported by written text in the policies for the development node beginning on page seven of the neighborhood plan. The map depicts five acres of commercial located nearest the intersection of Barger Drive and Beltline Road surrounded by approximately 16 acres of high-density residential and the balance. of the site extending east having approximately 71 acres of medium- den~ity residential. The applicant is proposing to expand the commercial to 15 acres, maintaining the same basic configuration and location. The proposed commercial uses would be oriented near the corner of Barger and Beltl1ne Road. Adjacent to this would be the 16 acres of high-density residential and the remainder of the site, approximately 68 acres, would be designated for medium-density residential. The vicinity map attached with th~ applicant's statement provides a reasonable"delineation of the proposed 15 acres .of commercial. In November 1992, the Eugene Planning Commission granted approval to the applicant's request for classification of the subject refin~ment plan amendment as a minor amendment. At this time, the Active Bethel Citizens neighborhood organization was notified and responded with written comment. That letter is an attachment to this record. Timing of the applicant's reclassification request was felt to be appropriate based on necessary design and approval of the Barger-Beltline interchange by the Oregon Department of Transportation. However, the design was not finalized within the gO-day time STAFF NOTES~-Planning Commission November 29, 1993 Page. 1 EXHIBIT A line after the commission's consideration and the approval expired with an application not having been submitted. The applicant's representative, Mr. David Pedersen, resubmitted the request for classification of the proposed change to the refinement plan. On June 7, 1993, the Eugene Planning Commission again approved the classification of the refinement plan request as a minor amendment. On September 2, 1993, the application for an amendment to the Bethel Danebo Refinement Plan for the Barger-Beltline development node was submitted to the Permit and Information Center. On October 7, 1993, notice of the request was mailed to the interested parties list, including the Active Bethel Citizens neighborhood organization; Greg Matt, Springfield Planning Department; Roy Burns, lane County Planning Director; and the Oregon Department of Transportation. Also, on October 7, public hearing notice was mailed to owners and occupants within 400 feet of the affected area. Written information has not been received from the Active Bethel Citizens neighborhood organization or from property owners in the vicinity of the request. Written comments received after October 22, 1993, will be given to the Planning Commission at its study session on November 1 or at the public hearing on November 2, 1993. land use and zoning adjacent to the area subject to this request is basically divided between residential and commercial. Currently, the subject property is vacant and is zoned RAISuburban Residential. This zoning district also extends north of the site between Highway 99 on the east and Beltline Road on the west. This area was subdivided in the 70's and early 80's; however, the development on individual lots is still occurring. The subdivisions in this area are characterized by single-family dwellings with an occasional duplex on the cOrner of two public streets. The exception is the parkland extending into the subject area from the north. This area is composed of approximately five acres and 1,s in the ownership of the City of Eugene and designated for park purposes. At this time, there is not a schedule for development of this public space. Immediately to the west is Beltline Road. Beyond to the west is low-density residential north of Barger Drive. South of this street and immediately west of Beltl1ne Road is Bethel Danebo Elementary School. low-density residential development extends south and west of the school. South of the development site extending from Beltline Road east to Highway 99 is commercial and low- density residential uses. The Echo Hollow shopping center 1s located in the immediate corner of Barger Drive and Beltl1ne Road, extending east to Echo Hollow. This area is currently zoned C-l Neighborhood 'Commercial and consists of approximately 9.5 acres. Extending east of Echo Hollow and south of Barger Drive to Empire Park Drive is an area characterized by sing1e- family dwellings with an occasional duplex on the corner of two public streets. Immediately along the east boundary of the development site is Empire Park Drive. Between this street and Highway 99 North is Tax lot 3601 which is zoned PL (Public land) and is currently a pond. Tax lot 3500 is located on the immediate corner of Barger Drive and Empire Park Drive. This site is zoned RAISuburban Residential and is currently developed with low- density residential. Extending south of Barger Drive along the west side of Highway 99 North is C-2, General Commercial Zoning associated with the existing strip commercial development. Immediately north of the subject area along Highway 99 North are a few single-family dwellings having street access associated with the subdivisions created in the 70's and early 80's, located north of the subject request. However, along the west side of Highway 99 and north of STAFF NOTES--Planning Commission November 29, 1993 Page 2 ( , these residences is property zoned C-2 and developed with automobile-oriented uses, i.e, equipment rental. East across Highway 99 is a large area zoned 1-3 Heavy Industrial District and is developed with a variety of industrial uses. Additional background addressing the various tax lot make-up of the development site, including sizes. ownership, and other general information about the area is presented in the applicant's statement attached to this review. Evaluation of the Refinement Plan Amendment The request for an amendment of a refinement plan must address the criteria contained in Section 9.145 of the Eugene Code. The applicant is requesting an amendment to the text and the proposed land use diagrammatic designation for the Barger-Beltline development node in the Bethel Oanebo Refinement Plan adopted September 13, 1982. The applicant's statement, Section lIon pages 1, 2, 3, and 4 presents background addressing history for adoption of the Bethel- Oanebo Refinement Plan, and how the Eugene Commercial lands Study integrates into the neighborhood plan and the Metropolitan Area General Plan with particular emphasis on Policy 19, Section II, pages 22, 23 and 24 of the Commercial lands Study. Text and related map for the Beltline-Barger development node begins on page 7 and extends through page 11 of the Bethel- Danebo Refinement Plan. Background and findings are presented. on pages 7 and 8. Recommendations addressing policies and proposals for the development node are located on pages 8 through 10. On page 11 is the map delineating proposed land uses and acreage. The analysis for the applicable criteria pertinent to a refinement plan amendment includes addressing specific changes to the text and the map on pages 8-11 for the development node. Text changes will include deletions by a dashed line and additions by a solid underline. Based on the information available and the criteria for evaluation of an amendment to a refinement plan, the staff presents the following evaluation. Section 9.145 C21(a): The plan amendment is consistent with the Metropolitan Area General Plan. The proposed map and text changes to the Bethel Danebo Refinement Plan are prompted by Policy No. 19 of the Eugene Commercial lands Study and its associated Implementation Strategy No. 19.1, which recommends a IO-acre commercial addition to the existing 5-acre designation and a corresponding change to permit Community Commercial Uses. The Neighborhood Plan text changes that are proposed are intended to reflect the recommended changes and to correct portions of the text affecting other portions of the development node where circumstances or facts have changed. The Commercial lands Study was adopted as a -refinement plana to the . Metropolitan Area General Plan in 1992. These proposed changes -are therefore consistent -with the Metropolitan Area Plan because it has been -refined" by policies and recommendations of the Commercial lands Study. Of possible interest is the language in Implementation Strategy 19.1 of the Commercial lands Study which states that the recommended commercial expansion should occur after the intersection improvements (Barger-Beltline) are made. Applicant intends to "track" with the intersection improvement schedule which now calls for an interchange to be started in the first half of 1994. The STAFF NOTES--Planning Commission November 29, 1993 Page 3 interchange design is now known and features a "diamond" type design with Barger Drive crossing over Beltline. The proposed text and map changes affect only the refinement plan designation for the area. Assuming these changes are approved, applicant must come back later to obtain a zone change and will not do so until a contract is awarded for construction of the interchange. In addressing the direction and consistency of the Metropolitan Area General Plan, Bethel-Danebo Refinement Plan, and the Eugene Commercial lands Study, the staff is recommending the following text and map changes. The text is from the Bethel-Danebo plan for the Barger-Beltline development node. That text with a dashed line shall illustrate deletions followed by inserted new text as underlined. Proposed changes to the text and map for the development node are based on information, policies, and strategies developed since adoption of the Bethel-Danebo Refinement Plan in 1982 (i.e., Eugene Commercial lands Study). Changes may also occur that address current and more precise information (i.e., total size of the node) and text errors (i.e., page numbers). B. Barqer-Beltline develooment node The Barger-Beltline development node involves approximately 9t 99 acres of land, which includes i ~ acres of commercial, 16 acres of high- density residential, and ~ 68 acres of medium-density residential (see map on page ~ 11). High-density residential development exceeds a density of 20 units per acre, as opposed to medium-density residential, which has a density of between 10 and 20 units per acre. It .was recognized that, based on future population needs, medium- and high- density allocations shown on the diagram may not be needed in the near future; however, specific sites should be protected to meet the future long-range needs. In its review of this development node, the plan provides for i 15 acres of commercial property north of Barger A1cnue Drive and adjacent to 9 acres of existing commercial zoning and development now located on the south side of Barger Avenue Drive at its intersection with Beltline Road. The logic for this location is based on inventories of existing commercial development in the area by the adoDted Euqene Commercial lands Study. Community Commercial zoning and development is located in the strip commercial area along Highway 99 North, extending from Roosevelt Boulevard continuously north to within a few hundred feet south of Barger A~CAue Drive. Much of this commercial land has been developed to a high intensity; however, located sporadically in this area are vacant or underused parcels. The proximity of the commercial development along Highway 99 North, beginning south of Barger A~CRUC Drive, is approximately three-quarters of a mile east from the existing commercial development located at the intersection of Barger A~CAUC Drive and Beltline Road. Policies set forth by the Metropolitan Area General Plan are intended to discourage strip commercial patterns. Proposed and existing high-density residential area in the northwest portion of Eugene (Bethel-Danebo area) is limited t~.the proposed 16 acres of high-density residential use ~11ocated for. the Barger-Beltline STAFF NOTES--Planning Commission November 29, 1993 Page 4 development node. The balance of this node, or approximately +l 68 acres, would be set aside for medium-density residential development. Medium-density housing in the Bethel-Oanebo area is limited to development in and around the Gilbert Shopping Center, which is located in the immediate vicinity of Fairfield Street and Highway 99 North. fR recent years, A number of multi-family housing developments have taken place, such as Sorgenfri, Sorgenfri Nord, landsby Place, and Solvang. These projects and other medium-density residential development existing in the Bethel Danebo area are basically confined to the approximately 17 acres. located in the immediate vicinity of Fairfield Street and Hi 99 north. Within the strip commercial area along .Highway 99 North are a few older motels which have kitchen facilities, allowing weekly and monthly accommodations. The separation distance between the Barger- Beltline development node and the medium-density residential node located near Fairfield Street and Highway 99 North is approximately two miles. The Barger-Beltline development node, as proposed, would provide a good balance in commercial and medium-density residential .uses with existing and proposed commercial areas and multiple-family housing throughout the Bethel-Danebo area. The map on page 4 notes the locations of the various commercial-residential nodes, existing or proposed, providing a visual distribution of these areas. Additional support for these land-use allocations is found in the Technical Summary of the Metro Plan. In conjunction with the technical data, The Metropolitan Area General Plan provides specific criteria for the allocation and location of the various commercial and residential development nodes. These criteria relate to the prime factor of population being a resource for an equitable distribution and balance of commercial land and industrial sites. A complete range of urban services provided additional criteria for identification of this commercial-residential development node. FeF example, the Barger Beltline development Rode has direct egress/ingress to Barger Avenue, ~hich is an arterial extending between two major arterials High~ay 99 North and Beltlinc Road. The proposed node will net be bisected by any future arterials, causing Acgati~e impact ~ithin the study area. The particular study area is presently scr~ed with the complete range of urban ser~ices, since it ;s ~ithin the City limits sf Eugene. Therefore, the dc~clopmcRt of this area is Rat dependcnt en thc extension sf urban services, or future capital improvemcnts, such as arterial streets, trunk sc~ers sr storm sewers. TranSDortation imorovements are reauired orior to full develoDment of the Beltline-BarQer develooment node. ImDrovements to the Baraer- Beltline interchanae are a function of the Oreaon Deoartment of TransDortation. Other imorovements will be necessary for Baraer Drive east of Beltline Road beyond the contractual limits associated with the interchanae imorovements. The develooment of the node will require other traffic improvements. These include additional turn lanes on Barger Drive and Echo Hollow Road when the node is develooed and shall be addressed bv the City. Street imorovements can be assessed with develooment of the node. The intensity for proposed services within the commercial area is dependent on the amount of land allocated for commercial use, the amount of residential STAFF NOTES--Planning Commission November 29, 1993 Page 5 area to be served, and specific uses allowed for in the various commercial categories of the Eugene Code. RECOMMENDATIONS: BARGER-BELTlINE DEVELOPMENT NODE Policy: A commercial/residential node, involving i ~ acres of neighborhood commercial, 16 acres of high-density residential, and +* 68 acres of medium-density residential shall be developed at the northeast corner of Beltline Road and Barger ^vcnuc Drive (see map on page *9 11). After completion of imorovements to the Barqer-Beltline interchanoe and Baroer-Echo Hollow intersection. allow develooment of the commercial site at the northeast corner of Barger Drive and Beltline beyond the Dresent size of 5 acres to a total of UD to 15 acres to serve both neiqhborhood commercial needs and as a community commercial center. The commercial-residential develooment node will consist of 15 acres of neighborhood and community commercial. 16 acres of hiah-densitv residential. and 68 acres of medium-density residential (see maD'on oaQe llh Prooosals: 1. Public or private egress and ingress should shall not be allowed along the north side of Barger Drive between the west margin of Echo Hollow Road if extended north of Barger ^vcnuc Drive and the east margin of Beltline Road. This recommendation is based on the existing adverse situation created by the private egress and ingress (curb cut) for Echo Hollow Plaza development located south of Barger ^vcnue Drive and west on Echo Hollow Road. Terminating along the northerly boundary of the development node are tw& four streets, Cubit Street, Waaner Street. Manaan Street. and North Clcary Clarey Street. It is assumed that these tw& streets will extend ;nto and through the development node site and create intcrsections with Bargcr AveAue. Cubit street is likely to extend south to the present intersection of Barger Avenue Drive and Echo Hollow Road and North Cleary Clarey Street is likely to extend south through the area creating an intersection with Barger ^VCAUC Drive at Tanev Street. The location/type of intersection can best be resolved based on knowledge of future development of the development node. Two other streets, Mangan and Wagner, will tic back likelv connect into Cubit Street and North Cleary Clarey Street before intersecting with Barger Avenue Drive. 2. It appears appropriate that public and private access for the develooment node should be limited to the extensions of Cubit Street and North Cleary Clarey Street on to Barger Avenue. Future development design of the special ~ area can use these two public rights-af-way without jeopardizing site design considerations. The only exception would be the small tax lots, 3500 and 3501, located at the extreme southeast corner of the development node. STAFF NOTES--Planning Commission November 29, 1993 Page 6 Barger ^vcnuc Drive is a minor arterial right-of-way providing a through-traffic carrier between Highway 99 North and development to the west. 3. Development of the special study area should use the two public streets recommended for extension through the subject area from the north. Restricting private driveway or street access directly onto Barger ^venue Drive will minimize additional controls for Barger ^~enuc . Drive. 4. In an effort to minimize through traffic and reduce adverse speed conditions on these two future rights-of-way, both Cubit Street and North Cleary Clarey Street should be located so as not to provide a straight/direct route from their present terminus south to Barger ^venuc Drive. An indirect street network would provide adequate and appropriate access for residential development. The purpose of such a street is to avoid adverse affects effects on existing and future residential living environment. 5. The Eugene Parks Department should continue its efforts to acquire additional park land for the park site north of Barger Drive bet~een Beltlinc Road and Highway 99 North. The City of EUQene should continue efforts to develop the existinq five-acre Dark site north of the subject area. west of Manqan Street. and south of Waqner Street. In keeping with the existing Bethel-Danebo Refinement Plan, and in light of future medium- and high-density residential development, such public open space will be needed to accommodate future population in the immediate area. The nearest public open space is associated with Willamette High School and the City-owned Echo Hollow swimming pool, both fronting Echo Hollow Road south of Barger ^venuc Drive. Presently, these facilities and future plans do not provide for the open space needs associated with the compact residential development scheduled north of Barger ^venue Drive. It should also be noted that the Willamette High School/Echo Hollow Pool complex is south of Barger ^'.'CRUC Drive, a minor arterial which can be diffi'cult to cross. 6. Since a portion of the site, approximately 5 acrcs, has been allocated for commcrcial uscs, the fivc acres could be split into t~o areas: onc on the immediate corner of Bcltlinc Road and Barger ^venue, and the other at the very extreme southeast corner of the development node located at Bargcr ^venuc and High~ay 99 North. These commercial arcas would provide buffering betwccn the major arterials bounding the site and rcsidential development within thc site. 2+. Commercial development should be at an intensity or level of use consistent with Residcntial/Professional eRP) General Offic~ (GO) or Neighborhood Commercial (C-1) -&tA Ceflcral Commercial (C 2) zoning. wJt.l.€h. in turn ~ould be compatible with adjaccnt residcntial dcvclopment. IS. Effective screening, berms, or landscaping should be provided along all arterials--Beltline Road, Barger ^venuc Drive, and Highway 99 North--in an effort to minimize existing and future negative impacts STAFF NOTES--Planning Commission November 29, 1993 Page 7 from these arterials. Berming is not necessary between commercial uses and arterial streets. ~9. A profile of existing residential development should be considered. Understanding that future residential development will be medium and high density in nature, least dense development in the development node study area should occur near existing single-family developments with higher densities closer to Barger ^vcnuc Drive. Appropriate setback and screening must be considered between Barger ^VCAUC Drive and proposed development within the study area. ~ Require new medium-density residential develoDment in the Barqer- Beltline develooment node area to achieve a minimum density level of 10 dwellinq units oar acre and new hiQh-density residential develooment to achieve a minimum density level of 15 dwellinq units Der acre. If a future citywide code amendment establishes different minimum. density levels than are established in this olan. the levels established in the code will take orecedence. . 10. A mixture of housing types and number of bedrooms should be considered. 11. Development options should be considered, including the establishment of phase lines based on a comprehensive plan for the area. The study area contains approximately 100 acres. Such a development would not be within the feasibility of a single, small developer. 12. Planned Unit Development procedures should be used to review residcntial dcvelopment. At the time of rezonina. aoolv the PD. Planned Unit Develooment Subdistrict to the various oroposed land uses in the develooment node: commercial. hiQh-densitv residential. and medium- density residential. A subdistrict is beina aoolied to ensure comDatibilitv and sensitivity between the orooosed land uses in the develooment node and the existlna surrounding low-density residential develoDment. The followina shall be addressed throuah the pun orocess. A. DeveloD a comprehensive street network. B. Adeauate,orovision for oublic oedestrian. bicycle and transit circulation among buildings and related uses on the develooment s'ite as well as with adjacent and nearby residential areas. transit stops. neiahborhood activity centers such as commercial areas. including office Darks and industrial Darks. At a minimum. "nearby" is interoreted to mean uses within 1/4 mile which can reasonably be eXDected to be used by oedestrians. and uses within 1 to 2 miles which can reasonably be exoected to be used by bicyclists. c. Encouraqe a variety of dwellinq tvoes. heights. and setbacks O~ Recoqnizino. existinq low-density residential .develooment alonq all parameters of the development node. including that area south of BarQer Drive. desiqn consideration for future develooment shall STAFF NOTES--Planning Commission November 29, 1993 Page 8 include sensitivity with respect to bulk. scale. setback and landscaoinq. Provide adequate and attractive bufferinq between the development node and the existinq surroundinq low-density residential develooment and within the develooment node between proDosed commercial and residential. E. Access shall not be Drovided alonq Barqer Drive in an area between Beltline Road east to Echo Hollow if extended north of Barqer Drive. Access for develoDment east of Echo Hollow will be encouraged and based on an overall street network to minimize direct access to Barqer Drive. F. Provide a visual enhancement utilizinq landscaDinq alona existinQ streets: Beltline Road. Barqer Drive. Emoire Park Drive. and Hiqhwav 99 North. ~ Bascd on the intcnsity of future development within the development node, and its impact on existing developed adjaccnt land and traffic concerns, site review procedures should providc an adequate proccss for reviewing future development ~ithin the RP or C 1 zoning districts and their proximity to existing and proposed land uses. 13. Chanqes in zoninq reflecting proDosed land uses in the develooment node shall not occur until after a contract has been awarded for imDrovements to the Beltline/Barqer interchanae and the intersection of BarQer and Echo Hollow Road. It is the staff's conclusion that the Metropolitan Area General Plan, as refined by the Commercial lands Study, provides policy direction for considering an increase of 5 acres to 15 acres for the proposed commercial designation in the Barger-Beltline development node. Considerations include policy and implementation strategy for the subject development node as described by the West Eugene Subarea beginning on page 111-22 of the adopted Eugene Commercial lands Study. The establishment of the specific zoning districts will be processed through subsequent public hearing and define conditions for site development, addressing the recommendation of a planned unit development subdistrict. Section 9.145(21bl: The plan amendment is consistent with the remaining portions of the refinement plan (adopted Bethel Danebo Refinement Plan). The proposed changes to the text put forward by the applicant are intended to make the Bethel-Danebo Plan internally consistent with respect to policies for the Beltline-Barger development node. The Bethel-Danebo Refinement Plan is the governing plan for the subject area and was adopted by the City Council on September 13, 1982. The proposal provides a development node of commercial, high-density residential, and medium-density residential. Text for the Barger-Beltline development node provides background and recommendations including policy and proposals. The proposed change indirectly affects only the amount of proposed commercial and medi~m-density residential. The medium-density residential will be reduced by approximately 10 acres corresponding to the additional 10 acres added to the proposed commercial area. The proposed high-density residential will remain at approximately 16 acres. Basic configuration for the various zoning districts as depicted on the map on page 11 of the neighborhood plan will not change dramatically. The proposed commercial will be oriented toward the STAFF NOTES--Planning Commission November 29, 1993 Page 9 south and west portion of the site, adjacent to Barger Drive and Beltline Road. This area, in turn, will transition into high-density residential and to medium-density residential to the east, which will encompass a majority of the proposed development node. The proposed changes to the text and the map for the subject area are intended to enhance the quality of the proposed development, recognizing the existing surrounding residential and commercial development. In conclusion, the proposed text and map changes by the staff are based on the applicant's request that an additional 10 acres of commercial is consistent with the recommendations including policies and proposals adopted for the development node by the City Council in September 1982 and by the adopted Eugene Commercial lands Study. Section 9.145(2)(cl: The plan amendment is found to address one or more of the following: 1. An error in the publication of the plan; 2. A change in circumstances in a substantial matter not anticipated in the plan; 3. Incorporation in the plan of new inventory materials which relates to a statewide goal; and 4. a change in public policy. The amendments related to the Beltline-Barger development node address two of the four criteria listed above. 1. The completion and legislative adoption of the Commercial lands Study is based upon a finding that the West Sub-area, which contains the Bethel-Danebo Area is expected to roughly double in population between the years 1988 and 2010 (from 28,090 to 54,420), the largest such growth area in the city. See Table 5, page 111-14, Commercial lands Study. In addition, the West Eugene Subarea contains the largest amount of undeveloped commercial land and the most potential for additional lands to be designated commercial (pg 111-22, Commercial lands StudY). Upon examination, the vast majority of the undeveloped commercial land is located near the 8eltline-West 11th intersection, well outside the Bethel-Oanebo neighborhood. In addition, four of the undeveloped sites in the West Sub-area are affected by the presence of wetlands, thereby reducing the effective acreage available for use. The Commercial lands Study is new, corrected, or refined inventory information which relates directly to Statewide Planning Goal 9, Economy of the State and to the Industrial and Commercial Planning Administrative Rule found in OAR 660 ~ivision 9. 2. The Eugene Commercial lands Study was legislatively adopted in 1992. Because of this, and because t~e study was adopted as a refinement to the Metropolitan Area Plan, the policies found in the study are public policy and represent a change if they differ from older policies or plan implementation strategies. The text and diagram amendments to the Bethel-Danebo Refinement Plan are necessary to make the refinement plan consistent with the Commercial . lands Study, a portion of the Metro Plan. In addition, the proposed STAFF NOTES--Planning Commission November 29, 1993 Page 10 amendments conform with the criteria specified in Section 9.145 of the Eugene Code. CONCLUSIONS AND RECOMMENDATIONS FOR THE REFINEMENT PLAN AMENDMENT The above analysis shows that the proposal to amend the text and map for the Barger-Beltline development node in the adopted Bethel-Danebo Refinement Plan to allow an increase from 5 acres to 15 acres for commercial use is consistent with the criteria for a refinement plan amendment. The request is supported by policy in the Metropolitan Area General Plan and policies and implementation strategy in the adopted Eugene Commercial lands Study. It is the recommendation of the Planning staff that the proposed text and map amendment would be appropriate, particularly given the change of circumstances as addressed in this review. For more information contact William French at the Planning Division, City Hall, Room 106, 777 Pearl Street or telephone 687-5481. Attachments: Vicinity Map Applicant's submittal letter from Active Bethel Citizens organization, dated November 19, 1992 Copy of text and map for the West Eugene Subarea of the Commercial lands Study ra93-I.stn STAFF NOTES--Planning Commission November 29, 1993 Page 11 / C"'\ t t-'l o,o,~ #~ ~~u .~. ~~ ('l'\ . . : ' . .... . . ..... ~ <\. .,. .. - -- l \ ~ ~ l-- J 1 ~ ~ ~O .. ~ O' C"'\ ~ ~ · J,S l"1'n~ .t{ ~ "i : .. . .. \ \ , l o )0 c-& IC"\ ~. ~ L .:..J :lS ueju~ Vr .' ~ SO.-'-- to----- IF'\ .. ~ \--::. \~ ~ .... ~ Cf\ . ~~ ..-:.- --- ~ .. - 1- ~ 1'. . ---- ---- , .... '. - __ . I-. .... : ~ '. "1 rJ::::j ~ , ~ , ,~, f' 11 J i,:l'-- \~: . .. 1. ~ ~ ~o 1\.\" --- ~'o ~ '._. .- _ _..~ll~ l'1~\~~ ~~::: - ~.--- ~~.-- '. . --:-- \--- - - . .:- ......... _ 1...... · _ _~ .,~.~.~ ~J,S tl~.-- ~ .8 ~.__ _ ".. I '_"' .... ..;:-.. '-:- "I 7 ~ t~~ :. . .J"~ ~<t' ;4- ~ ~ Z' ('1"\ A ~.~ - l$~. ~~ -'~~; ~~ . "'- -""1'_ <<1f. . ~ ~ti. ~ ~x1 1 ~ ~ T .~ H___ l.--- &.S J.U'I" 6== \ CJ_ \ ..' ? ~ f ~ " -rl :::~ -- V a<ltt~ ___ J L.... \ ' i//"- ~ .\ Ii' - g ~ vl/ l- ~ ' \ I'll w1. uM. Oq~'i" I o o ct\ l)'g ~ o. ~ .... ~ o 09~ ~ ~ J ~J J -"';; avOll ~1.I.1.~a -~ ~ :-- ~ :- -" ~::......,....~..- ,.,.- ~... ~~ . ~ - . ~ ".......,. - -..--. . "~ --.- ~ -4- '- ~ ~~ 5"-- 5 . :111---5 p; L-- c--l -~ .&J CA 4l & ~ 44..t o GS CU ~. I- 1-12 o o BETIIEL DANEBO REFINEMENT PLAN AMEND1v1ENT BARGER - BETIIEL DEVELOPMENT NODE I. INTRODUcrrON The property involved in this request is located east of Beltline Road north of Barger Drive and west of Empire Park Road and consists of 99.6 acres. The site consists of the following lots and ownership. Map No. Tax Lot Owner Acres 17-04-15 3300 Graville Properties 42.51 17-04-15 3200 Graville Properties 17.6 17-04-15 3100 Oral Graville 18.68 17-04-16-4.4 100 Graville Properties 1.21 17-04-16-4.4 200 Graville Properties 19.6 Total 99.6 The property is vacant, is within the City of Eugene, and has the full range of urban services provided to it The property is surrounded by arterial streets on the south west and a portion of the east. To the east, Tax lot 3500, map 17-04-15 is occupied by what appears to be an old motel while 3501 is occupied by a single dwelling. North of the property is the various additions to Clarey Subdivision which is all single family and largely developed. There is an undeveloped 5 acre park site which lies between the extension of Wagner and Mangan Streets. This park site was purchased from the applicants following adoption of the Bethel-Danebo Refinement Plan. IT. PROPOSED CHANGE IN TEXT - BETHEL-DANEBO RBFINEMENT PlAN The Bethel-Danebo Refinement Plan was drafted by a Planning Team consisting of members from the Active Bethel Citizens, Bethel Triangle Neighbors, and Eugene Planning Department staff. The Plan was approved by the Eugene Planning commi~ion in June, 1982 and adopted by the City Councn September 13, 1982. The applicants for thiS proposed change own approximately 99 acres located on -the north side of Barger Drive as previously noted and this acreage is referred to in the Refinement Plan as the Barger-Beltline Development Node. The text of the Refinement Plan is proposed to be amended to provide for an additiona110 acres of Commer~a1ly designated . 1 1-13. o o land to be located at the intersection of Barger and Beltline Road ill this Node. . The Commercial area now contains 5 acres. The change is proposed to reflect policies and recommendations found in the Eugene Commercial Lands Study which pertain to this property. The Eugene Commercial Lands study was reviewed and adopted by the Commercial Lands Study Task Force, the Eugene Planning Commission and by the Eugene City Council in October, 1992, and further selVes as a refinement to the Eugene-Springfield Metropolitan Area General Plan. The relevant portion of the Commercial Lands Study which recommends the Refinement Plan change is found on pages i11-22, 23 and 24 and is as follows: Policy 19.0 "Consider additional commercial land in the West Eugene Subarea to accommodate both neighborhood commercial needs and those of the larger community. . In siting additional commercial land, evaluate impacts on traffic patterns and surrounding land uses." Implementation Strategy 19.1 "After completing intersection improvements, consider expanding the commercial site at the northeast corner of Barger Avenue and Beltline from the present size of 5 acres to a total- of 15 acres to seNe both neighborhood commercial needs and as a community commercial center. Initiate the necessary amendments to the Bethel- Danebo Refinement Plans and the Metro Plan." Subarea Background Information (from Commercial Lands Study) "The development of the vacant commercial site at the northeast comer of Barger and Beltline for commercial use should not occur prior to the planned improvements to the BargerlBelt1ine intersection. The site should be designed.to accomm~te safe access to and from the site and to include buffering between the commercial area and surrounding residential uses. Either Echo Hollow or Taney south of Barger could be extended north to provide better north-south access in the area.. This could also provide improved access for surrounding residents to the neighborhood commercial area. This area is referred to in the BetJiel Danebo Refinement-Plan as part of the Bethel- Danebo Development Node. A band of high-density residential land was 'pI~ed to the north and east of the existing area designated for commercial use. The high- density residential area~ntained about 16 acres. The medium-density residential area contained about 1. acres. The amount of high-density residential land and me~um-density residential land remaining will depend on the actual configuration 2 I-14 o n~- \! i.~ _ ._~ and size of a larger commercial area. U The description and recommendations pertaining to the Barger-Beltline Development Node are found on pages 7-10 of the Bethel-Danebo Refinement Plan document. The original text is reprinted in its entirety below: "B. Barger-Beltline Development Node. The Barger-Beltline development node involves approximately 92 acres of land which includes 5 acres of commercial,16 acres of high-density residential, and 71 cres of medium-density residential (see map on page 10). High-density residential development exceeds a density of 20 units per acre, as opposed to medium-density residential, which has a densi~ of between 10 and 20 units per acre. It was recognized that, based on future population needs, medium- and high-density allocations shown on the diagram may not be needed in the near future; however, specific sites should be protected to meet future long-range need. In its review of this development node, the plan provides for 5 acres of coIm;llercial property north of Barger Avenue and adjacent to 9 acres of existing commercial zoning and development now located on the south side of Barger Avenue at its intersection with BeltIine Road. The logic for this location is based on inventories of existing commercial development in the area. Communi~ commercial zoning and development is located in the strip commercial area along Highway 99 North, extending from Roosevelt Boulevard continuously north to within a few hundred feet south of Barger Avenue. Much of this commercial land has been developed to a high intensity; however, located sporadically in this area are vacant or underused parcels. The proximi~ of the commercial development along Highway 99 North, beginning south of Barger Avenue, is approximately three-quarters of a mile east from the existing commercial development located at the intersection of Barger Avenue and BeltIine Road. Policies set forth by the Metropolitan Area General Plan are intended to discourage strip commercial patterns. Proposed and existing high-density residential area in the northwest portion of Eugene ( Bethel-Datlebo area) is limited to the proposed 16 a~es of high-densi~ residential use allocated for the Barger-BeltIine development node. The balance of this node, or approximately 71 acres, would be set aside for medium-densi~ residential development Medium-densi~ h9using in the Bethel-Danebo area is limited to development in and around the Gilbert Shopping Center, which is located in the immediate vicini~ of Fairfield Street and Highway 99 North. In recent years, a number of mul1i~family housing developments have taken place, such as Sorgenfri, Sorgenfri Nord, LandSby Place, and Solvang. These projects and other. medium-densi~ residential development existing in the Bethel-Danebo area are basically confined to the approximately 17. acres located in the immediate vicini~ of Fairfield Street and 3 1-15 (~) ~ ~i: ., ,.~ .-....;. Highway 99 North. Within the strip commercial area along Highway 99 North are a few older motels which have kitchen facilities, allowing weekly and monthly accommodations. The separation between the Barger-Beltline development node and the medium-density residential node located near Fairfield Street and Highway 99 North is approximately two miles. The Barger-BeltIine development node, as proposed, would provide a good balance in commercial and medium-density residential uses with existing and proposed commercial areas and multiple-family housing throughout the Bethel-Danebo area. The map on page 4 notes the locations of the various commercial-residential nodes, existing or proposed, providing a visual distribution of these areas. Additional support for these land-use allocations is found in the Technical Summary of the Metro Plan. In conjunction with the technical data, the Metropolitan Area General Plan provides specific criteria for the allocation and location of the various commercial and residential development nodes. These criteria relate to the prime factor of population being a resource for an equitable distribution and balance of commercial land and industrial sites. A complete range of urban seIVices provided adcUtional criteria for identification of this commercial-residential development node. For example, the Barger-BeltIine development node has direct egress/ingress to Barger Avenue, which is an arterial extending between two major arterials-Highway 99 North and BeItIine Road. The proposed node will not be bisected by any future arterials, causing negative impact within the study area. This particular study area is presently seIVed with the complete range of urban seIVices, since it is within the city limits of Eugene. Therefore, the development of this area is not dependent on the extension of urban seIVices, or future capital improvements, such as arterial streets, trunk sanitmy sewers, or storm sewers. The intensity for proposed seIVices within the commercial area is dependent on the amount of land allocated for the commercial use, the amount of residential area to be seIVed, and specific uses allowed for in the various commercial categories of the Eugene Code. RECOMMENDA nONS: Barger-BeltIine Development Node Policy: A commercial/residential node, involving 5 acres of neighborhood commercial, 16 acres of high-density :r;esidential, and 71 acres of medium-density residential, shall be developed at the northeast comer of BeltIine Road and Barger .Avenue ( see map on page 10). Proposals: 1. Public or private egress and ingress should not be allowed i;I.long the north 4 1-16 O~.-,. . . Of..... <. . 14.... ~ side of Barger Drive between the west margin of Echo hollow Road if extended north of Barger Avenue between the east margin of Beltline Road. This recommendation is based on the existing adverse situation created by the private egress and ingress (curb cut) for the Echo Hollow Plaza development south of Barger Avenue and west on Echo Hollow Road. Terminating along the northerly boundary of the development node are two streets, Cubit Street and Cleary Street. It is assumed that these two streets will extend into and through the development node site and create intersections with Barger Avenue. Cubit Street is likely to extend south to the present intersection of Barger Avenue and Echo Hollow Road and Cleary Street to extend south through the area creating an intersection with Barger Avenue. The location/type of intersection can best be resolved based on knowledge of future development of the development node. 1\vo other streets, Mangan and Wagner, will tie back into Cubit Street and Cleary Street before intersecting with Barger Avenue. 2. It appears appropriate that public and private access should be limited to the extensions of Cubit Street and Cleary Street on to Barger avenue. Future development design of the special study area can use these two public rights- of-way without jeopardizing site design considerations. The only exception would be the small tax lots, 3500 and 3501, located at the ext;reme southeast comer of the development node. Barger Avenue is a minor arterial right-af-way providing a through-traffic carrier between Highway 99 North and development to the west 3. Development of the special study area should use the two public streets recommended for extension through the subject area from the north. Restricting private driveway or street access directly onto Barger Avenue will minimi7~ additional controls for Barger Avenue. 4. In an effort to minimi7'~ through traffic and reduce adverse speed conditions on these future rights-of-way, both Cubit Street and Cleary Street should be located so as not to provide a straight/direct route from their present terminus south to Barger Avenue. An indirect street network would provide adequate and appropriate a~ for residential development The propose of such a street is to avoid adverse affects on existing and fu~e residential living environment 5. The Eugene Parks Department should continue its efforts to acquire additional park land for the park site north of Barger Drive between BeltIine 5 1-17 o 0... t . \:". Road and Highway 99 North. In keeping with the existing Bethel-Danebo Refinement Plan, and in light of future medium- and high- density residential development, such public open space will be needed to accommodate future populations in the immediate area. The nearest public open space is associated with the Willamette High School and the City-owned Echo Hollow swimming pool, both fronting Echo Hollow Road south of Barger Avenue. Presently, these facilities and future plans do not provide for the open space needs associated with the compact residential development scheduled north of Barger Avenue. It should also be noted that the Willamette High School/Echo Hollow Pool complex is south of Barger Avenue, a minor arterial which can be difficult to cross. 6. Since a portion of the site, approximately five acres, has ben allocated for commercial uses, the five acres could be split into two areas; one on the immediate comer of BeltIine Road and Barger Avenue and the other at the very extreme southeast comer of the development node, located at Barger Avenue and Highway 99 North. These commercial areas would provide buffering between the major arterials bounding the site and residential development within the site. 7. Commercial development should be at an intensity or level of use consistent with Residential/Professional (RP) or Neighborhood Commercial (C-l) which in turn would be compatIble with adjacent residential development. 8. Effective screening, berms or landscaping should be provided along all arterials-BeltIine Road, Barger Avenue, and Highway 99 North-in an effort to minimi7~ existing and future negative impacts from these arterials. 9. A profile of existing residential development should be considered. Understanditig that future residential development willlle medium and high density in nature, least dense development in the development node study area should occur near existing single-family developments with higher densities closer to Barger Avenue. Appropriate setback and screening must be considered between Barger Avenue and proposed development within the studyar~ 10. A mixture of housing types and number of bedrooms per Unit sh!luld be considered. .. . 11. Development options should be considered, including establishment of phase lines bases on a comprehensive plan for the area. 6 1-18 o O~: . ~..... The study site contains approximately 100 acres; such a development would not be within the feasibility of a single, small developer. 12. Planned unit development procedures should be used to review residential development. 13. Based on the intensity of future development within the development node, and its impact on existing developed adjacent land and traffic concerns, site review procedures should provide an adequate process for reviewing future development within the RP or C-l zoning districts and their proximity to existing and proposed land uses. It The proposed changes to the text as follows is intended to reflect changes recommended by the Commercial Lands Study, to reflect changes in the factual bases (i.e. parkland acquisition) and to provide additional clarity. "B. Barger-BeltIine Development Node. The Barger BeltIine development node invol\~ appr(}ximately 92 aorc.s of land 9Nhioh includes 5 acres of oommercial, 16 acres of high. density residential, and 71 acres of medium densit)yresidentiaI (see map on page 10). The Barger-BeltIine development node involves approximately 99 acres of land, which includes 15 acres of commercial, 16 acres of high-density residential, and 68 acres of medium-density residential (see revised plan map). High-density residential development exceeds a density of 20 units per acre, as opposed to medium-density residential, which has a density of between 10 and 20 units per acre. It was recognized that, based on future population needs, medium- and high-density allocations shown on the diagram may not be needed in the near future; however, specific sites should be protected to meet future long-range need. In its rc\ieVS,9 of this development Bode, the plaB provides for 5 acres of commeroiaI propertjp BOrth of Barger ~\venue and adjaoont to 9 acres of existing oommeroiaI zoBiBg and development BOW located OR the south side of Barger ~'\.vcnuc at its intersection with BeltliBe Road. The logic for this location is based on inventories ~ existiBg commercial dc".'eJ.opment iB the area. commuBi~ oommercial z<JBiBg aDd developmeJlt is looa,ted iB the strip 0omm~oiaI area along Highway 99 North, exteB.ding from Roosevelt Boulevard 0ontinuously north to withia a fe". hundred feet south of Barger ~'\veBtle. Mueh of this eommereiallaB.d Bas beeD. de".~eloped to a high intensity; however, located sporadiaally in this area are vaeaat or underused parecls. The proximi~ of the 0omm~oial development alOBg High..vay 99 North, begHming south of Barger ~A~"leBue, is.approKimately three quarters of a.mile east from the e~g .commercial development located at the mtersectioB of Barger l'~venue and BeltliBe Road Policies set forth by the metropoIitaB ~\rea General pian are intended to discourage strip commercial patterns. Based .c;>n recommended policies and implementation strategies. found in the 7 1-19 0:. '- . ~ ~J Commercial Lands Study, this refinement plan provides for 15 acres of commercial property north of Barger Avenue at its interchange with BeltIine Highway.. This commercial area is to accommodate both neighborhood commercial needs and those of the larger community and will require the application of both C-l and C-2 zoning, which will occur later.. Proposed and existing high-density residential area in the northwest portion of Eugene ( Bethel-Danebo area) is limited to the proposed 16 acres of high-density residential use allocated for the Barger-BeltIine development node.. The balance of this node, or approximately +l 68 acres, would be set aside for medium-density residential development Medium-density housing in the Bethel-Danebo area is limited to development in and around the Gilbert Shopping Center, which is located in the immediate vicinity of Fairfield Street and Highway 99 North. In recent years, a number of multi-family housing developments have taken place, such as Sorgenfri, Sorgenfri Nord, Landsby Place, and Solvang. These projects and other medium-density residential development existing in the Bethel-Danebo area are basically confined to the approximately 17 acres located in the immediate vicinity of Fairfield Street and Highway 99 North. Within the strip commercial area along Highway 99 North are a few older motels which have kitchen facilities, allowing weekly and monthly accommodations.. The separation between the Barger-BeltIine development node and the medium-density residential node located near Fairfield Street and Highway 99 North is approximately two miles.. The Barger-BeltIine development node, as proposed, would provide a good balance in commercial and medium-density residential uses with existing and proposed commercial areas and multiple-family housing throughout the Bethel-Danebo area. The map on page 4 notes the locations of the various commercial-residential nodes, existing or proposed, providing a visual distnoution of these areas. Additional support for these land-use allocations is found in the Technical Summary of the Metro Plan. In conjunction with the technical data, the Metropolitan Area General Plan provides specific criteria for the allocation and location of the various. commercial and residential development nodes. These criteria relate to the prime factor of population being a resource for an equitable distnoution and balance of commercial land and industrial sites. A complete range of urban services provided additional criteria for identification of this commercial-residential development node. For example, the Barger-B~ltIine development node has direct egress(mgress to Barger Avenue, which is an arterial extending between two major arterials-Highway 99 North and BeltIine Road The proposed node will not be bisected by any future arterials, causing negative impact within the study area. This particular study uea is presently seIVed with the complete range of urban services, since it is within the city limits of Eugene. Therefore, the development of this area is not dependent on the e~nsion of urban services, or future capital improvements, such as arterial 8 I-20 o 0'.'; -'. streets, trunk sanitary sewers, or storm sewers. The intensity for proposed services, within the commercial area is dependent on the amount of land allocated for the commercial use, the amount of residential area to be seIVed, and specific uses allowed for in the various commercial categories of the Eugene Code. Policy: 6.^.. commcrciallresideiltial Bode, in\~1vin.g5 acres of neighborhoodcommeroial, 16 acres of_ high density' residential, aDd 71 acres of medium density residential, shall be de\'eloped at the northeast comer of Belt1ine Road and Barger t-A.\Fenue ( see map on page 10). A commerciaVresidential node, involving 15 acres of commercial, 16 acres of high-density residential, and 68 acres of medium-density residential, shall be developed at the northeast comer of Belt1ine Road and Barger Avenue (See revised map). . Proposals: 1. Public or private egress and ingress should not be allowed along the north side of Barger Drive between the west margin of Echo hollow Road if extended north of Barger Avenue between the east margin of Belt1ine Road. This recommendation is based on the existing adverse situation created by the private egress and ingress (curb cut) for the Echo Hollow Plaza development south of Barger Avenue and west on Echo Hollow Road. Terminating along the northerly boundaty of the development node are two streets, Cubit S1reet and Cleary S1reet. It is assumed that these two streets . will extend futo and. through the development nod~ site and create intersections with Barger Avenue. Cubit Street is likely to extend south to the present intersection of Barger Avenue and Echo Hollow Road and Cleary Street to extend south through the area creating an intersection with Barger Avenue. The location/iWe of intersection can best be resolved based on knowledge at future development of the development node. Two other streets, Mangan and Wagner, will tie back into Cubit Street and Cleary Street before intersecting with Barger Avenue. . 2. It appears appropriate that public and private access should be limited to the extensions of Cubit Street and Cleary -Street on to Barger avenue. Future development design of the special study area can use these two pu~lic rights- 9 I-.21 .~ ~: J . \..._.,;... o of-way without jeopardizing site design considerations. The only exception would be the small tax lots, 3500 and 3501, located at the extreme southeast comer of the development node. Barger Avenue is a minor arterial right-of-way providing a through-traffic carrier between Highway 99 North and development to the west 3. Development of the special study area should use the two public streets recommended for extension through the subject area from the north. Restricting private driveway or street access directly onto Barger Avenue will minimi7~ additional controls for Barger Avenue. 4. In an effort to minimi7~ through traffic and reduce adverse speed conditions on these future rights-of-way, both Cubit Street and Cleary Street should be located so as not to provide a straight/direct route. from their present terminus south to Barger Avenue. An indirect street network would provide adequate and appropriate access for residential development The propose of such a street is to avoid adverse affects on existing and future residential living environment 5. The Eugene Parks Department should continue its efforts to acquiro additional park land for the park site BOrth. of Bargcr Drive betvw'CeB. BeltIine Road and High...,ray 99 North. In. keeping with the existing Bethel Danebo Refiaemcnt PlaB, and iB light of future medium aDd high densi~'" residcntial developmeBt, such public open space will be needed to accommodate future populations in the immediate area. The Dcarest publie open space is assooiat~d \"lith the '.'1lillamette High School aDd the Ci~ o~Nfled Echo HoIlO'.".,'" S\"l1mming pool, both fronmg Echo Hollow Road south of Barger ~\~'eBtie. Presently, these faeilities BBd future . plaBs do Bot provide for the opeD &pave needs assooiat~d with the eompact residential development ooheduled north of Barger ~Aa.venlle. It should also be nated that the "'iJIamette High Sehe0J/E0ho HoRo,,'" Pool eomplex is south of Barger AA....Jeflue, a miRar arterial .w".,ymeB caB be diffieult to cross. 6. Siaoe a portieR of the site, apprOKimatcly five acres, has ben alloeated for oommereial uses, the five &eras could be split into t\y.'O areas; one on the immediate comer of BeltIm.e Road and Barger AA.:veB.ue aDd the other at the .vet')p ememe southeast Gomer of the development BOde, located at Barger AVeBue and Highway 99 North. . These commeroial areas \\~ pro\ide buffering between the major arterials b~UBding the site and residential development within the site. 10 1-22 o o 7. Commercial dCYlclopmcnt should be at an intensity or Icv'cI of usc consistent .,'"lith Rcsidcntial/Profcssional eRP) or Neighborhood Commercial eC 1) which in turn .,";:ould be compatible \-;ith adjacent residential dc,\rclopment Commercial development should be at an intensity or level of use consistent with Neighborhood Commercial (C-l) or Community Commercial (C-2) which in turn would be compatfble with adjacent residential development. 8. Effooti";e screening, berms or landscapmg should be provided along all arterials BeltIine Road, Barger .&\:vcnuc, and High.,vay 99 North in an effort to miBimize existing and future Bcgatiy;c impacts from these arterials. 9. A profile of existing residential development should be considered. Understanding that future residential development will be medium and high density in nature, least dense development in the development node study" area should occur near existing single-family developments with. higher densities closer to Barger Avenue. Appropriate setback and screening must be considered between Barger Avenue and proposed development within the study area. 10. A mixture of housing types and number of bedrooms per unit should be considered 11. Development options should be considered, including establishment of phase lines bases on a comprehensive plan for the area. The study site contains approximately 100 acres; such a development would not be within the feasibility of a single, small developer. 12. PlaBned uBit development procedures should be used t<l rewc",,\p residential developmeRt Based on the intensity of future development within the development node, and its impact on existing developed adjacent land and traffic concerns, site review procedures should provide an adequate process for reviewing future development within the COmmercially and Residentially designated areas. 13. Based OD the intensity of future developmeBt within the de\'elopment Bode, and its impact OD eKistiBg developed adjacent land au.d traffic concerns, site reviev.9 prooedures should prmide ail adequate prooess for reviewing futUre de,~lopment within the "RP or C 1 ZOBiBg districts and their proximity txO existing and proposed land 'Uscs. II 11 1-23 .. ~ . 0' \iiJ A V ID. APPLICABLE STANDARDS The criteria evaluation of an amendment to a refinement plan are specified in Section 9.145(2) of the Eugene code and include the following standards: 1. The plan amendment is consistent with the Metropolitan Area General Plan; 2. The plan amendment is consistent with remaining portions of the refinement plan; and 3. The plan amendment is found to address one or more of the following: (a) an error in the publication of the plan; (b) a change in circumstances in a substantial manner not anticipated in the plan; (c) incorporation into the plan of new inventory material which relates to a statewide goal; or (d) a change in public-policy. Analysis of each is as follows. - Section 9.145(2)(a): The plan amendment is consistent with the Metropolitan Area General Plan. The proposed map and text changes to the Bethel Danebo Refinement Plan are prompted by the findings of the Eugene Commercial Lands Study which recommends a 10 acre commercial addition to the existing 5 acre designation and a corresponding change to permit Communi~ Commercial Uses. The Neighborhood Plan text changes that are proposed are intended to reflect the recommended changes and to correct portions of the text affecting other portions of the development node where circumstances or facts have changed. The Commercial Lands Study previously mentioned was adopted as a "refinement plan" to the Metropolitan Area. General Plan. According to Section 9.138(2)(a) of the Eugene Code, a "Refinement Plan" means a "comprehensive Land use plan for a discrete part of the geographic area regulated by the Metropolitan Area General Plan-andin~ludes special area studies listed in the Metropolitan Area General Plan. n The policy recommendations in the Commercial Lands Study affect discrete parts (commercial lands) of the geographic area regulated by the plan and therefore are refinements to the Metropolitan Area Plan. These proposed changes are therefore consistent with the Metropolitan Area Plan because it has been "refined" by policies ~d recommendations of the Commercial Lands Study Of possible interest is the language in Implementation Strategy 19.1 of the Commercial Lands Study which states that the recommended commercial expansion should occur,'after the intersection improvements (Barger-BeltIine) are made. Applicant intends to "track" with the intersection improvement schedule which now ca1ls for an interchange to be started in the first half of 1994. The'interchange design is now known and features a ndi~ond~ type 12 1-24 1) 0- . ., design with Barger Drive crossing over Beltline. The proposed text and map changes affect only the refinement plan designation for the area. . Assuming these changes are approved, applicant must come back later to obtain a zone change and will not do so until a contract is awarded for construction of the interchange. Section 9.145(2)(b): The plan amendment is consistent with remaining portions of the refinement plan. The proposed changes to the text put fOIWard by the applicant are intended to make the Bethel-Danebo Plan internally consistent with respect to policies for the BeltIine-Barger Development Node. Section 9.145(2)(c): The plan amendment is found to address one or more of the following: (1) an error in the publication of the plan; (2) a change in circumstances in a substantial manner not anticipated in the plan,. (3) incorporation into the plan of new inventory material which relates to a statewide planning goa~. or (4) a change i1i public policy. The amendments related to the BeltIine-Barger Development Node address two of the four criteria listed above. 1. The completion and legislative adoption of the Commercial Lands Study is based upon a finding that the West Sub-area, which contains the Bethel. Danebo Area is expected to roughly double in population between the years 1988 and 2010 (from 28,090 to 54,420), the largest such growth area in the city. See Table 5, page ill-14, Commercial Lands Study. In addition, the West Eugene Subarea contains the largest amount of undeveloped commercial land and the most potential for additional lands to be designated commercial (pg ill-22, Commercial Lands Study). Upon examination, the vast majority of the undeveloped commercial land is located near the BeltIine- West 11th intersection well outside the Bethel-Danebo neighborhood. In addition, four of the undeveloped sites in the West Sub-area are affected by the presence of wetlands, thereby reducing the effective acreage available for use. The Commercial Lands Study is new, corrected or refined. inven~ty information which relates directly to Statewide Planning Goal 9, Economy of the State and to the Industrial and Commercial Planning Adm;ni~trative Rule found in ,.OAR 660 Division 9. . 2. The Eugene Commercial Lands Study was legislatively adopted in 1992. B~use of this, and because the Study was adopted as a re~ement to the 13 1-25 o o Metropolitan Area Plan, the policies and implementation strategies found in the Study are publi~ policy and represent a change if they differ from older policies or plan implementation strategies. The text and diagram amendments to the Bethel-Danebo Refinement Plan are necessm.y to make the refinement plan consistent with the Commercial Lands Study, a portion of the Metro Plan. In addition, the proposed amendments conform with the criteria specified in Section 9.145 of the Eugene Code. IV. Summary and Conclusion The Bethel-Danebo Area is expected to receive the majority of the population growth expected in the City of Eugene in the next 10 years or so. It is also an area with the greatest potential for designating additional commercial land before the inevitable population growth creates conflicts with future commercial land use designations. As the Commercial Lands Study points out in the case of the South Sub-area, it is nearly impossible to add to the commercial land base in existing residential neighborhoods. The subject property, has been designated for 5 acres of neighborhood commercial. The increase in size to 15 acres and broadening of the uses to include Community Commercial comes as a recommendation contained in an adopted refinement plan to the Metropolitan Area Plan. The proposed development will require a zone change which will be tied to the construction of the BeltIine-Barger Interchange. Because the interchange design is now known, it is possible for the applicant to begin to precisely locate zone boundaries and to conduct the numerous pre-design and design studies prior to actual development. --- Finally, the proposed amendments conform with the City of Eugene Code criteria by which refinement plan amendments are judged.' 14 1-25 t~) -11- tV m +z (1)-0 CO ~2 .p ~ --JJ Q tD C w mm Cf) i. E 0 0- ffiCe 0 010 a::: r...--- 0- m Q) '-' .c -- [I] > 0 2 0 m :r: 0- rO C) ~ ~ 0 (:) .... 4) - E to 1-26 v:,. . - ~" - Ot OJ ~~- o I (- J: ~r J" ~ a~ lU ~ . . ~;~ ~tt~~ . ...; "':",.,.. ..;. ..... .. . . . "'oil'...... ,.-.. /~~: '. I ~ .~.:.... .. ~ '.~' ...... . .. : ~~: :- . ..; . .~..... . .':;,;..;:.. . to. .~~~ ~~.: ..: :.:..:0 ~ ....~) ",,:... c:7t.; t9 ~ .. ,,+1 ....-:-;- ..~.,~:.::..-..-:: <:) .:.;.:~~ .. ~:~..:;:..:.~\ ~ --, ~ .... .:-~::.":..i'..'!!4t~:~ 'V. ~ ~{;':;: :t-0.~"2;~ ... I. . .... .... . ~ ...; ~ U .:=---- ~.':-"l;t::~~~{ '.1" 'f:"..e ',- - -- " ;;~~~ . ;~ I;: ~~~ . .' ~l~~ ':'. >.':..~!~rJ:; .. . fi.:.? ...;r.. : ::.~ i~,~i\~: oi5 wO C . ..: W' .."... .. . ..:, ^. ~:., "(u ,0 .." ~.. ..:~ I . .~~. :.::~:' .:- ..~: :;~ :.s: .. ......... .. ..,.... . . ..~ ... .. . " ;. .: !.-. ..-..... i... .~;~~:~:~ ~'ji~ ~ . ~ _. . a. "'.11;' . .lo~ .....~~....\~~-; : .... ..,...... oil. will..... . .., ," 1 : '.. :~., . :.f ; . ; ,,~~\.";.:: .("'. . . ....... :..~~;:~)~t; . : . .~ f: ~ ......" ;:-~::. :~tl..~ , ~:~~~~\;;i~ _ .~"'l' · ~,........ 1:.. .. 1-27 A..cti-vc \nethef Citi3ens ~i9hborfiood Organi3ation 870 Cficrnt3cn <1Z4. qEugene, ()~97402 "~'ii"~"~"~"~'"~ November 19,1992 TO:William French/Planning & Development FROM: ABC Neighborhood Organization RE:Application Classification for Bethel-Danebo Refinement Plan Amendment Dear Mr. French/City of Eugene Planning & Development: This letter is an official response from the ABC Neighborhood Organization regarding the Barger-Beltline development proposals. -Major concerns that any development address the already existing traffic problems at the Beltline/Barger intersection. With the High School & Middle School nearby, there has been a high fatality rate with the mixture of Beltline Highway traffic, and student/pedestrian crossing. -Request that the zoning remain R-2 or better, in order to maintain the _ integrity of the existing residential area. -Medium density residential zoning would address the concerns regarding Police & Fire service availability, Effects on the School district enrollment & necessary tax finance base, minimize increased traffic impacts, provide an equal & stable tax base for the area. -Since no specific commercial use is proposed at this time, we cannot prOvide an accurate response to "rezoning to accommodate an expanded variety of commercial uses". The general response from the meeting was that retail usage may be acceptable, but Industrial would not. Part of the concern expressed was that by allowing a multiple range of zoning options, the area could be used for Industrial purposes, inappropriate for the existing residential zoning. Please keep us updated on this proposal- Thank You- ABC Chairperson, Fran Gillespie 689-5462 .RECEIVED NOV 2:~ 1992 DEPT. OF PLANNING - CITY OF EfJGENE 1-28 In conjunction with the technical data, the Metropolitan Area General Plan .provides specific criteria for the allocation and location of the various commercial and residential development nodes. These criteria relate to the prime .factor of population being a resource for an equitable distribution and balance of commercial land and industrial sites. A complete range of urban services provided additional criteria for identification of this commercial- residential development node. For example, the Barger-Beltline development node has direct egress/ingress to Barger Avenue, which is an arterial extending between two major arterials--Highway 99 North and Beltline Road. The proposed node will not be bisected by any future arterials, causing negative impact within the study area. This particular study area is presently served with the complete range of urban services, since it is within the city limits of Eugene. Therefore, the development of this area is not dependent on the extension of urban services, or future capital improvements, such as arterial streets, trunk sanitary sewers, or storm sewers. The intensity for proposed services within the commercial area is dependent on the amount of land allocated f9r the commercial use, the amount of residential area to be served, and specific uses allowed for in the various commercial categories of the Eugene Code. RECOMMENDATIONS: Barger-Beltline Development Node Policy: A commercial/residential node, involving 5 acres of neighborhood commercial, 16 acres of high-density residential, and 71 acres of ,medium-density residential, shall be developed at the northeast corner of Beltline Road and Barger Avenue (see map on page 10). Proposals: 1. Public or private egress and ingress should not be allowed along the north side of Barger Drive between the west margin of Echo Hollow Road if extended north of Barger Avenue and the east margin of Beltline Road. . This recommendation is based on the existing adverse situation created by the private egress and ingress (curb cut) for the Echo Hollow Plaza development south of Barger Avenue and west on Echo Hollow Road. Terminating along the northerly boundary of the development node are two streets, Cubit Street and Cleary Street. It is assumed that these two streets will extend into and through the development node site and create i~tersections with Barger Avenue. Cubit Street is. likely to extend south to the present intersection of Barger Avenue and Echo Hollow Road and Cleary Street to extend south through the area creating an. intersection with Barger Avenue. The location/type of intersection can best be resolved based on knowledge of future development of the development node. Two other streets, Mangan. and Wagner, will tie back into Cubit Street and Cleary Street before intersecting with. Barger Avenue. 1-30 -8- 2. It ~pears appropriate that public and private access should be limited to the extensions of Cubit Street and Cleary Street on to Barger Avenue. Future development design of the special study area can use these two public rights-af-way without jeopardizing site design considerations. The only exception would be the small tax lots, 3500 and 3501, located at the extreme southeast corner of the development node. Barger Avenue is a minor arterial right-of-way providing a through- traffic carrier between Highway 99 North and development to the west. 3. Development of the special study area should use the two public streets recommended for extension through the subject area from the north. Restricting private driveway or street access directly onto Barger Avenue will minimize additional controls for Barger Avenue. 4. In an effort to minimize through traffic and reduce adverse speed conditions on these future rights-of-way, both Cubit Street and Cleary Street should be located so as not to provide a straight/direct route from their present terminus south to Barger Avenue. An .indirect street network would provide adequate and appropriate access for residential development. The purpose of such a street is to avoid adverse affects on existing and future residential living environment. 5. The Eugene Parks Department should continue its efforts to to acquire additional park land for the park site north of Barger Drive between Beltline Road and Highway 99 North. In keeping with the existing Bethel-Oanebo Refinement Plan, and in light of future medium- and high-density residential development, such public open space will be needed to accommodate future popula- tions in the immediate area. The nearest public open space is associ- ated with Wil1amette High School and the City-owned Echo Hollow swimming pool, both fronting Echo Hollow Road south of Barger Avenue. Presently, these facilities and future plans do not provide for the open space needs associated with the compact residential development scheduled north of Barger Avenue. It should also be noted that the Wil1amette High School/Echo Hollow Pool complex is south of Barger Avenue, a minor arterial which can be difficult to cross. 6. Since a portion of the site, approximately five acres, has been allocated for commercial uses, the five acres could be split into two areas; one on the immediate corner of Beltline Road and Barger Avenue and the other at the very extreme southeast corner of the develop~ent node, l~cated at Barger Avenue and Highway 99 North. These commercial areas would provide buffering between the major arterials bounding the site and residential development within the site. -9- 1-31 7. Commercial development should be at an intensity or level of use consistent with Residential/Professional (RP) or Neighborhood Commer- cial (C-1) which in turn would be compatible with adjacent residential development. 8. Effective screening, berms, or landscaping should b~ provided along all arterials--Beltline Road~ Barger Avenue, and Highway 99 North--in an effort to minimize existing and future negative impacts from these art-er i a 1 s . 9. A profile of existing residential development should be considered. Understanding that future residential development will be medium and high density in nature, least. dense development in the development node study area should occur near existing single-family developments with higher densities closer to Barger Avenue. Appropriate setback and screening must be considered between Barger Avenue and proposed development within the study area. 10. A mixture of housing types and number of bedrooms per unit should be considered. 11. Development options should be considered, including the establishment of phase lines based on a comprehensive plan for the area. The study site contains approximately 100 acres; such a development would not be within the feasibility of a single, small developer. 12. Planned unit development procedures should be used to review residential development. 13. Based on the intensity of future development within the development node, and its impact on existing developed adjacent land and traffic concerns, site review procedures should provide an adequate process for reviewing future development within the RP or C-1 zoning districts and th~ir 'proximity to. existing and proposed land uses. '.. -.6: :.: '< ~.:.l ... ~." ~ .; "..-:: '... ""! 1.:'0 : _~ .. ~ ..' . , ~'. _~ i :....~~,:...~.~... ..,. .. , -. · ..~'.<t: : ~. '..!;~:;;'" :r. : ..... .:....~ :. .., .:--....; ; ..... . ~ _ __. .,.-_ -10- 1-32 OJ m1J ~~ .IJ -.IJ m c: mm t. E m[l 010 L-- m OJ m~ ~C -11-" +z b 1-33