Loading...
HomeMy WebLinkAboutOrdinance No. 19749ORDINANCE N0. 19749 AN ORDINANCE CONCERNING THE DOWNTOWN MALL; AMENDING SECTIONS 4.810, 4.512, AND 4.515 OF THE EUGENE CODE, 1911; REPEALING ORDINANCE 15901; ADOPTING PLAN FOR DOWNTOWN MALL REDESIGN AND RECONSTRUCTION; PROVIDING FOR ELECTOR APPROVAL TO OPEN CERTAIN DOWNTOWN STREETS TO VEHICULAR TRAFFIC; AND DECLARING AN EFFECTIVE DATE. The City Council of the City of Eugene finds that: A. Since mid-1989, City staff, the Downtown Commmission, and a Retail Task Force appointed by the Downtown Commission have conducted numerous sur- veys and held public meetings to evaluate and determine what action needs to be taken to strengthen and revitalize the downtown mall. B. The Council approved the Retail Task Force Final Report in July, 1990, and appointed~a~ Downtown Desig~n~Committee in August, 199o to work with City staff and a consulting team to develop a downtown design project. C. The Downtown Design Committee has submitted a report detailing a plan for the redesign and reconstruction of the downtown mall. The Council concludes that redesign and reconstruction of the downtown mall is an impor- tant element of the City's overall strategy to revitalize the downtown. The Council further concludes that the Report of the Design Committee establishes a sound pi an far that redesign and reconstruction. A copy of the Downtown Design Project Summary Report is attached hereto as Exhibit A and incorpor- ated herein by this reference. D. The Council concludes that, if the voters approve the downtown design as set forth in Exhibit A, then redesign and reconstruction of the downtown mall should be conducted in a manner substantially consistent with that design. The redesign and reconstruction will be undertaken on a schedule that the Counci 1 approves as 1 ogi sti cai 1 y and financial 1 y feasible . E . The proposed redesign and reconstruction of the downtown mall i n a manner reasonably consistent with the downtown design as set forth in Exhibit A requires amendments to the Eugene Code, 1911. Those amendments to the Code, set forth below, and other policies of this Ordinance are consistent with the Eugene-Springfield Metropolitan Area General Plan and other applicable planning pal i ci es as more particularly set forth i n the findings attached as Exhibit Band incorporated herein by reference. NOW, THEREFORE, THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS: Section 1. The findings set forth above, and the findings set forth in Exhibit B hereto are hereby adapted. Section 2. The City Council hereby approves and adopts the Downtown Des ~ gn Project Summary Report attached as Exh i bi t A hereto and ~ ncarporated herein by reference. Approval of this Ordinance by the voters of the City Ordinance - 1 shall constitute voter approval of the Downtown Design Project Summary Report. Upon such approval , the City may redesign and reconstruct the downtown mal 1 only i n a manner substantially consistent with Exhibit A. Such redesign and reconstruction shall in no event allow a greater intensity of motorized vehi- cle access to the downtown mall than is provided in the Summary Report Project Design Description. The Council shall adopt a phasi ng schedule for the re- design and reconstruction project that takes into account the City's finan- cial resources, the public convenience and the logistical demands of the project . Section 3. Section 4.870 of the Eugene Code, I9lI, is amended to pro- vide: 4.870 Pedestrian Mall -Purposes. Eugene's downtown pedestrian mall has been built to renew, preserve, and enhance the ecanomi c and aes- thetic value of the city's central business district and to provide facili- ties conducive to a harmonious blend of civic, social, cultural, and economic pursuits, One significant purpose of the mall is to enhance the economic vitality of adjacent property. The mall is intended to encourage private investment in the downtown area and to enhance the value of such investments by encouraging pedestrians to came to the area. The multiple uses of the mall are to be accommodated by reserving different areas of the mal 1 ~ ~ } as visual amenities designed for everyone's enjoyment, ~2} for pedestrian uses, ~3} for use by abutting merchants, ~4} for uses by other commercial pursuits and ~5} for public events. When compatible such uses may also occupy the same areas of the mall. Section 4. Subparagraph (1)(k) of Section 4.872 of the Eugene Code, 1971 is repealed, Subparagraphs (1) to (t) of Subsection (1) thereof are re- lettered (k) to (s) respectively, with (k) and (q) amended to provide: 4.872 Pedestrian Mall - Prohibited Acts. ~ 1 } Except when approved as part of an authorized activity, the fol 1 owi ng acts are prohibited on the mall ~a} Interfering with an authorized activity. fib} Climbing any tree. ~c} Except for stairways and chi l drens' play area apparatus, climbing any mall structure which is more than six feet in height on either side. ~d} Climbing any structure in such a manner as to create a danger of personal injury or property damage. fie} Impeding any pedestrian ar emergency access lanes. ~f} Sitting on any Central Plaza fountain step when other persons or objects are currently occupying more than one half of that step, fig} Except for an-duty trained dogs being used to assist handicapped persons or police, bringing or allowing any uncaged animal onto the mall. ~ h } Depas i t i ng or leaving any substance other than water i n a fountain ar using the water in a fountain for any purpose other than wading. ~i} Except in an emergency or except for grassy areas lying down. Ordinance - 2 ~j} Except for children under six years of age, sleeping. ~k} Riding a bicycle an a street which is closed. ~l} Riding or using a skateboard yr rollerskates. gym} Engaging in a commercial pursuit. fin} Placing a di spl ay. ~ o } Except as provided i n section 4.881, conducting or par- ticipating in the conduct of any activity with four or more persons or which is likely to attract at any one time an assembly of aver 25 pevp1 e . gyp} Creating or continuing a noise disturbance. ~q} Except far publicly owned vehicles or public utility vehicles when responding to an emergency, operating ar parking a motor vehicle on a street which i s closed. fir} Except far subpart ~f} of this section, sitting on any mall surface intended for pedestrian purposes. ~ s } Entering into a shrubbed or flowered area or acting i n a manner harmful to any plant life on the mall . Section 5. Subparagraph ~f} of Section 4.876 of the Eugene Code, 1911, i s hereby amended to provide ' ~ ities Requir~ng__Permits. Except for parti- 4.876 Pe estr~an Ma - Activ ci pants i n a ci ty sponsored event, no person or business shal l con- duct any of the fallowing activities without first receiving a mall activity permit: ~f} Operating or parking a motor vehicle on a street which is closed. Section 6. The Downtown Design Project Summary Report attached as Exh l bi t A pravi des for motor vehicle and bicycle traffic on Wi 11 amette Street, Olive Street and a portion of Broadway Street now closed to vehicular traffic. Notwithstanding the provisions of Sections ~, 4, and 5 of this Ordi Hance, no person not presently authorized to operate or parka vehicle on the Downtown Mall may da sa until the electors of the City authorize the specified streets to be opened and appropriate signs and/or signals are erected therefor. Fail - ure to comply with this provision shall subject the violator to the penalties set forth in Subsections 4.9904}~5} of the Eugene Code, 1971. Section 7. Approval of this Ordinance by the electors of the City shall constitute elector authorization to open the downtown streets to vehicular traffic as specified i n Exhibit A to the full extent that such authorization i s required by this Ordinance and any other provision of 1 aw. Section 8. Ordinance Na. 15907 is hereby repealed. Section 9. This Ordinance shall become effective upon approval by the voters of the City. Passed by the City Council this 27th day of February, 1991 G... City Rec der Approved by the Mayor this 21th day of February, 1991 ayor Ordinance - 3 ordinance ~~I9749 Exhibit A `. ~1 i t Downtown Design. Project Summary Report 29 January 1991 Downtown Desi n Committee Peg Allison Reid Anderson Scott L. Austin Peter Bartel Mary Bentsen Alex Chisholm Mark Daonan laurel Fisher . Byron Glidden Jim Ivory AI Johnson, Chairperson Nancy Nathanson Betty Niven Mike Schwartz Patricia Vallerand Ci of Eu ene Planning & Development Department Development Division Planning Division Public Works Department Engineering Division Facilities Division Transportation Division Parks, Recreation & Cultural Services Department Cultural Services Division Consultant team . Tom Beckwith AICP, Project Director/Planner, Beckwith Cansultin Grou Aimee Beckwith P ~ g p ublic Surveys, Beckwith Consulting Group Scott Dana, Public Surveys, Beckwith Consultin Crou g, P Heather Westing, Public Relations, ClevengerWestin p ~ g on Carlson AIA, Architect/Urban Designer, Carlson/Ferr~n Architects Tom Morris, Architect, Carlson/1=errin Architects Robert Shinbo ASIA, Robert Shinbo & Associates Eric Hovee, Economist, E.D. Hovee & Company Art hones, Cost Analyst, C3 Management Group Darrel Chambers, Traffic Engineer, Tudor Engineering Company Caner hoto looking north on Willamette Street from Broadwa Avenue at the 1948 Shrine Parade Y. photo courtesy of the Eane County Historical Museum . Executive Surnma . Following is a summary of the Downtown Desi n Committee's ma'or recommen~ g 1 dations. Define Willamette Street as the'~ceremonial street" The proposed design underscores the importance of Willamette Street as Eu ene's "ceremonial avenue or main str ~ g ~~ eet .The space is designed as a convertible street that opens to two-way access for automobiles, smaller transit vehicles such as vans and trolleys, and bicycles, but that closes entirely for edestrian activities on occasion. The "cony p • ertible street design concept incorporates distinctive street and sidewalk avin materials, curbin treatments scree P g g t tree and lighting standard placements, movable furnishings, and other features that provide visual orientation and coherence to the s ace when the convertible street is in the clos p• ed or open state. Parking and pedestrian loading bays are provided, but the bays are well back from the intersections allowin maximum edestrian uses on the frontin i g • p g s dewalk areas when the street is open for vehicular access. ~denti the s mbolic si nificance of Willamette Street and East Broadwa The design extends the convertible street desi non East Broadwa Avenue from Will g . Y amette to yak Street identifying the symbolic and social importance of Willamette Street's intersection with Broadwa Avenue. The desi n incar orates distinctiv Y g p e street and sidewalk paving materials, gateway column definitions, a sta in Iatform, fountain street trees and other • g g P •' special design features that establish the visual and functional si nificance of this ke s ace. ~ g YP . Redevelo the laza into anall-weather activi area The design redevelops the plaza into a landmark structure that houses coffee flower newspaper, and other vendors along with special eatin erformance areas and ublic restrooms • • .. g- P P to focus activity within this key space. The proposal creates an indoor outdoor ~ , climate controlled structure where the activities are visible and wills ill out into the street s ace Burin favorable w P p g eather. link 1illamette and Broadwa with the Park Blocks The proposal .recommends the ci consider ac uirin and redevelo in h ' .. tY q g p gt a Equitable Building parking lot into a special multipurpose corridor with reen s ace and landsca in a fountain a s e i l g • p P g' p c a performance and venders area. The proposal links the mall and laza . area with the activi o ortunities and o .p ty pp pen space potentials that are available within the Park Blocks for everyday enjoyment and special $ta in occasions, such as the Saturda Market. g g ~ y Kee West Broadwa as a edestrian area The design retains West Broadway between Willamette and Charnelton Streets as a pedestrian-only area that continues to provide the outdoor seatin sho in vendin eifiormance and h ~ PP ~ g' p of er features that are successful and popular at the present time. Retain the s ecial utilities of the Broadwa Clive Street intersection The design .improves the intersection of West Broadwa and Clive Street with distinctive sidewalk r ~ Y st eet paving materials and curbing treatments that reinforce the special utilities rovided b the s ace. The ro osal r q • p y p p p etains and refurbishes the popular existing fountain. Increase the access o ~ortunities on Clive Street The design opens C]liveStreet tvtwo-way vehicular access with s ecia{l defined arallel arkin and assn P • Y P p • g p e ger loading bays along the curb. Distinctive paving materials and curbing treatments within the pedestrian areas retain and visual) reinforce the si nificance Y g of the pedestrian crossings on ~iive Street at the alle s and intersections. The street and arkin areas ar y • p e paved with standard materials that provide visual d~fferent~at~on between veh~cu ar and pedestrian access areas. (dent' the atewa and corridors to the downtown district The design identifies the "gateways" yr entries into the downtown district from the intersections on 8th and 1 oth Avenues, and Charnelton and C]ak Streets incor gratin the distinctive avin materials artw rk P g P g • o des.~gns, street trees, lighting standards, and s~ na e that are used on Willamette and Broa w • g g day. The concept extends this distinctive treatment through the symbolic corridors that lead inta the downtown on Willamette south to ~ 3 h t Avenue and north to 5th Avenue, and on East Brvadwa to the Fer Street Brid e. Y ry g The Downtown Desi n Committee unanimous) ado t g y p ed the above proposals on 29 January ~ 991 • Downtown Redesign Principles -Retail Task Force !n August of 189, the Eugene Downtown Commission appointed a special Retail Task Force to work with city staff and .Downtown Eugene Incorporated to examine the factors necessary for a successful, dawntawn retail sector. The ~fi~member Retail Task Farce was intended to represent a broad spectrum of downtown interests and o inions, and included . P four property owner interests, four retailers, a member of the Friends of Downtown, a neighborhood leader, a downtown attorney, a representative of Lane Transit District, a Eugene Planning Commissioner, two Downtown Commissioners, and two City Councilors. The Retail Task Force found successful dawntawn revitalization was dependent u on several interrela f p ted actors. Accordingly, the task farce issued a f nal report ~n dune ~ 990 that contained detailed proposals concerning downtown tenant mix objectives, a ro e . p P ~' owners program for ach~evrng and promoting the tenant mix plan, .recommendations concerning public policies for effectively supporting downtown development, and an item~zat~on of specific pr~nc~ples concerning the redesign of the downtown physical environment. The task force believed it will .be necessary to improve dawntawn access in order to successfully recruit and retain businesses in accordance with the desired tenant mix lan. Accordin l th k p . g y, etas force drafted the Downtown Redesign Principles to provide direction for a redesign effort. In summary, the principles recommend the ex ansion and . p improvement of the public plaza space and the introduction o~ northJsouth vehicular access in a design that retains a strong downtown edestrian orientation. {The cam fete . .p P text of the Downtown Redesign Principles ~s prav~ded ~n Appendix A to this re ort.~ p The City Council approved the Retail Task Force report in duly 190 and directed ci staff . ~' to implement a public design process based on the Downtown Redesign Princi les. p The Downtown Design Process In August 1990, following the City Council's review and approval of the Downtown Redesign Pr~nc~pies ~n the June 1990 Retail Task Force report vn downtown revitalization, the Council appointed a 15-member Downtown Desi n Committee. Eike the Retail Task F g arce, the membership of the Downtown Design Committee was purpose) structured to rovide a r r y p ep esentat~ve cross-section of downtown property, retail business, employee, resident, and other interests. The membership includes a downtown pro a owner, a P rt'}' downtown business owner, a downtown employee, a nei hborhood leader, a des n rf g ~ g p a ess~onal, a representative of the Friends of Downtown, a representative of Downtown Eugene lnc., a member of the Downtown Commission, a member of the Plannin g Commission and five at-large representatwes. The Council charged the Downtown Desi n Committee to work with ci staff a . g tY , ~ . professional consulting design team, and the public to produce a schematic desf n that follows the Dawn w g to n Redesign Principles and has the highest chance of approval by Eugene voters - as Council intends to place the resulting proposal on a ballot fora voter decision, The goal for this phase of the process was to develop a s ecific schematic desi n p g that incorporated vehicular access and the other Downtown Redes~ n Prince les that the Commit g p tee, city staff, and consultant find resolved as many issues as possible and that has the greatest possible opportunity for success. The Council did not expect or intend that all Committee members would ersonall subscribe to th i p y e dea of opening Willamette to vehicles. However, the Council purposely structured the Committee to include persons with all points of view in the belief that the best possible design would result from a balance of viewpoints. City~staff subsequently.advertised on a com etitive basis for a consultant team to work . P with the Committee and city staff. City staff selected the consultant team followin the . g review and evaluation of consultant qual~ficat~ons, the consultant's proposed methods of approach to the process, and observations and comments from Committee members. The Downtown Desi n Committee, ci staff and consultant reviewed th ' ' g ty a Council s charge, the Downtown Redesign Principles, and other background materials and decided on the following guidelines: a: The process should provide as much public input as possible, ran in from artici ato worksho s g p• P ry . p at the beginning of the process where the public may he p define des n issues; to rnclude des: n for g . g • , ums or cr~t~ques ~n the middle of the process where the public may offer specific cr~t~c~sms or suggestions; to a public survey type of format at the end ®f the process where the public has an opportunity tv review and indicate an overall ratin of the g results. b: The process should develop designs which seek to implement the access conce is embodfed within h p t e Downtown Redesign Principles, but that the process should be open- endedand need not be limited in the scope of alternatives to be evaluated. c: The Committee should make decisions on a consensus basis where o Lions are and elimin p y aced from further cons~derat~on ~f a clear consensus of the Committee so decides following a thorou h review of the issues, public discussion, and a ublic vote b the arti i p y p c pat~ng mem ers. 2 With the above guidelines in mind, the Downtown Desi n Committee, with ci staff and consultant as i g • ry s stance, sponsored the following public design events: Partici ata Plannin Worksho ~n the 1 nth, ~ 7th and ~ 9th of September 1990, the Downtown Desi n Committee hosted and the ci staff and c n • •g v sultant conducted, a series of special participato downtown • ~ 'Y planning and design workshops with downtown. retailers, roe owners nei hborhood • P P ~' g residents, and other interested parties ~n a storefront desi n studio established on the round floor f ' ' g g o the Broadway Build~n on East Broadway. fiver 95 eo le si ned u and artici aced on a first m '' ~ P p g P p p co a bass ~n t o five~workshop sessions. With the consultant team's facilitation, the participants were or anized into small 10-20 person work groups that 1) evaluated existing downtown land/ uildin use conditions and identified alternative mark ' • • g, • et~ng strategies for vacant or underut~l~zed bu~ld~ngs; 2) developed preferred activities plans for the downtown which accounted for differences in seasons and weather; and 3) identified and made s ecific comments concernin existin h sisal f .. P g g p y eatures that the groups liked or disliked about the present mall. Each small work group's participatory design products and comments were recorded b artici atin Downtown Desi n Commi '' y P P g • g ttee facilitators, displayed on the walls of the storefront deli n study, and summarized into tabular form f g or review. The participants also completed a survey at the end of the sessions that asked the reasons far their participation in the workshop, their o . inions concernin the conduct and us f P e ulness of the sessions, and their characteristics concernin t eir interests and use of g the downtown. Eu ene Celebration Surve On the 21st, 22nd and 23rd of se tember 1994, the Committee hosted an ' P d city staff and the consultant conducted, a downtown desi n evaluation with the attendees of the Eu en Cel g g e ebrat~on at the storefront design studio on East Broadwa .The consultant or anized and dis la ed th r ' ' y g p y e esults of the partic~patvry design workshops yn the walls of the storefront studio. Celebration attendees were encouraged to view the results on the artici ato desi n worksho s then cam 1 P P ry g p , p ete a deta~~ed survey asking about seasonal and weather ~m acts on the use of downtown s aces likes an ' ' ' ' P p d dislikes of existin mall physical improvements, preferences about some alternative strategy approaches to t e downtown and their characteristics concerning downtown utilization, ~ , fiver 572 people visited the studio to review the results of the artici ato worksho s corn fete the d it P P ry P'• p eta ed survey, and provide open-ended comments on the rocess or desi n of their choosin . P g g The consultant collated and used the results of the artici ato desi n workshy s and th P p ry g p e Eugene Celebration surveys and comments to develop a series of alternatives dealin with 1) downtown atewa and corridor a r g g y pp oath concepts, 2) three downtown vehicular and pedestrian access strategies, 3) a vehicular and edestrian access matrix that introduced P the convertible street concept, and 4) example street develo meat confi uratiyns illustratin th i P g g e mpact of different pavement, sidewalk, and street tree lantin dimensions. These initial conce is w r P g e e reviewed, discussed, modified, and redefined to the .p. Committee's satisfaction follvw~ng a number of detailed worksho s involvin the P g Committee, city staff, and consultant. 3~ C]„~n For,um ~, 0n the 23rd of actober ~ 990, the Committee hosted ' and city staff and the consultant advertised and conducted,.a public design evaluation forum with interested down w to n retailers, property owners, neighborhood residents, and other interested artier a t the storefront desi n studio on East Br P • g oadway. The consultant organized and dis la ed the results of the Committee's evaluations P, y • • vn the walls of the storefront studio and within a handout booklet provided to all attendees. aver ~ 1 a people signed up and participated in two evenin ublic forum sessions. With the consultant's facilita i ' ' g ~ ton, the participants were organized into small work .rou s of 15- 2o persons er table to review and ravid ' ' ` P P p e criticirms and suggestions on ~ } t e gateway and corridor entry concepts, 2} 3 alternative street access conce is that locat p ed traffic streets, access/parking/pedestrian streets, pedestrian-onl streets, and the convertible street at different laca i y t ons on Willamette, Broadway and dive Streets, and 3} an accessibility matrix that defined and .illustrated the im act of the above streets on v r' P a sous generic design configurations, The groups were encouraged to provide detailed criticisms or su estions Burin the small group sessions. At the end of the sessions, each small group I ed rou mem ers on which conce is were to '~ ' ~ g P p be eliminated or studied further by the Downtown Desi n Committee, Each small work rou 's evalu ' g anon comments and scores were recorded by .. g P particrpatrng Downtown Design Committee facilitators and summarized b the consultant into tabular form far review, y The participants also com feted a surve at the end of h ' . , P , y ~ , t e sessions that asked the reasons far their particrpatron in the forum, their o rnrons conceenin the condu of th P • ~ g c~ and usefulness e session, and their characteristics concerning their interests and use of the downtown. The information developed from the desi n forum and the exhi i . g b ted concepts were reviewed, discussed, modified, redefined, and eventuall narrowed in sea a to the Committee's satisfa i n y P ct o following a number of detailed workshops involvin the Committee, ci staff, and consultant. g ,. The consultant used the results of the Committee's work sessions to refine an detail d develop . ed concepts dealing with ~) streetscape furnishin sand treatments to be moor orated in ~ g p to the pedestrian, convertible street, plaza and intersection areas establishing the district corridor gateways, 2}final street sidewalk and street confi ' gurations, and 3} a series of passive/active redevelo ment conce is for the laza E' ui ' and h P P p q table Building, t e packing lot between the mall and Park Blocks. Desi n Forum~2 ~_ ~n the 18th of November 1990, the Committee advertised and hosted a secon ublic d d two-part p esign evaluation forum at the Hilton Conference Center with interested downtown retailers, property owners, neighborhood residents, and other interested artier. P Approximately 20 persons signed up on a first come basis and artici ated Burin h artof thefo .. P ,P t efirst p rum which was conducted to allow participants to ravide o en-en ed resentations of their indiv ' ~ • P P P •idual proposals, criticisms or suggestions to the members of the Downtown Design Committee. About 15 persons made resentations describin th i exce Lions con r P g e e p ce ns, and suggestions on the process and eesultin desi n conce ts. g g P About 2b persons participated in the second art of the (arum which consiste con •• P dafa sultant facilitated review of the streetscape elements, final alternative street 4 confi urations, and active/passive plaza alternatives. The group was encoura ed to rovide detai ed criticisms or u g P s ggestions on the final design alternatives. At the end of the .session, the group polled the group members an which concepts were to be eliminated or studied further by the Downtown Design Committee. The group's evaluation comments and scares were recorded by participating Downtown Design Committee facilitators, and summarized by the consultant into tabular form for review. The participants also completed a survey at the end of the session that asked the reasons for their participation in the forum, their opinions concernin the conduct and usefulness of the ' ' • • g session, and their characteristics concernrngtheir interests and use of the downtown. The information developed from the second design forum and the exhibited conce is were P reviewed, discussed, modified, redefined, and eventually narrowed rn sco a tv the P Committee's satisfaction following a number of detailed workshops involvin the g Committee, city staff and consultant. The consultant used the. results of the Committee's work sessions to com lete the streetsca a furnishin fin P p gs, al street configurations, and the plaza and Park Block linkage concepts shown 'in the recommended design proposals. Re inter Guard Surrre 4n the 3rd and 6th of January 199, a special-notice was published on the Committee's behalf in the Eugene Register Guard news a er. The notice was re ared and edited b . PP Pp ,Y crty staff and the consultant, and described the final des+ ns, summa recommendations • ry - , potential costs, and other particulars. The notice include a brief curve that readers could f i I l out and ret rn ' ' ' ~ Y u indicating their opinions on specific features. Approximately 485 people returned curve s, some with a ended comments or le r .. Y pp tte s of opinion, for the Committee's review. Survey results were collated by the consultant and reviewed by the Committee during the final work sessions that resulted in the recommendations described within this report. ~~ Project Design Description Based on the results of the preceding~downtown design process, the Downtown Desi n committee decided to o en flliv g p e and Willamette Streets between 8th and ~ 0th Avenues, and the portion of East Broadway from yak to Willamette Streets, to two-wa access for automobiles small r r ~ y. e t ansit vehicles such as vans and trolleys, and bicycles with some specially designed parallel parkin and passenger loadin ba s. 41ive is desi ned to remain o en f r o g y g p o ehrcular access but Wil amette and East Broadway are desi ned to be "convertible r g ~ • st eets that are open to vehicles but that can be closed entirely for edestrians P on occasion. The present plaza area is redeveloped with a climate controlled, indoor outdoor activities . structure furnished with a performing stage, sidewalk vendors, and public restrooms, The present parking area between the Equitable Building and First Interstate Bank could be acquired and redeveloped into a pedestrian oriented space linkin the mall with the Park Blocks. ~ Graphic examples are provided on succeeding pages, followin is a brief descri flan of the g p design proposals. Willamette Street and East Broadwa Willamette Street between 8th and loth Avenues and East Broadwa between Willamette • ~ • ~ y ~~ and Qak Streets are designed as special, ceremonial convertible streets o en tv automobile smaller r i p t ans t vehicles such as vans and trolleys, and bicycle access but which can be closed for pedestrian activities on occasion. When a en, the a rvximatel 11-12 foot acce I p p p y ss ones function as two-way main access streets to the downtown core and provide some, short-term parallel parkin spaces in front of retail stores. When closed, the .entire b6 foot street corridor is useable or all kinds of edestrian oriented activities P including outdoor theater performances, street bands and musicians, street vendor and market activities, parades, and other celebration a activities. tYp A street tree theme provides overhead folio a that rovides definition to the corridor • • • .p. outdoor cafe and other pedestrian activity areas within the sidewalks aces. The arkin onions of the r p p g p st eet are designed with a slight curb providing a clear, safe definition between vehicular and pedestrian areas. However, the curbs in the intersection between Willamette and Broadway from the plaza to the proposed ark link ad'acent to the. E uitabl ' ' p ~ q e Budding are level with the pedestrian areas to facilitate the use of the entire street space for special pedestrian events. A specially designed pools accent or artwork is installed within h ~ ' ' g t e ntersection providing furtherlnterest and definition to this portal or gateway threshold. Distinctive ~paving~ materials are interwoven between the edestrian, access lanes and arkrn ~ ' ~ p p areas visually integrating the spaces. Street Irght standards, benches, moveable type p aster tubs, and other furnishings link the street with the theme established on the pedestrian portions on West Broadway. Two distinctive standards are erected at the intersection of Willamette and East Broadwa that incor orate seatin areas and inf r y . p g o motional kiosks at the base, special overhead event flood lighting, and theme artwork on the top. The standards visual) define the intersection and establish • ~ y a gateway to the interior pedestrian spaces on West Broadway. A new accent fountain is located at the entrance to West Broadwa that extends in ' y to and is visible from Willamette. Special event overhead lighting, sound a ui ment, and ower qP P 6 Downtown definition and gateway corridors W 7 services are incorporated allowing the fountain to be turned off and covered for use as a stage for special event performances. Indoor outdoor activities structure The existing plaza area is completely redeveloped for a climate controlled, indoor outdoor structure that houses a performance stage, food vendors, and public restrooms. The theme type structure incorporates specially designed transparent roofing surfaces that allow the maximum amount of light and view in and out of the structure durin inclement weather eriods. S ecial fol - g p p d up walls or doors open and expand the complete space onto the sidewalk and street durin favorable weather. Cvverhead radiant heatin elements make the s ace comfortable for c ' ' ' g • p • o ee, cafe, and other activities Burin the coldest periods. Indoor landscaping, theme lighting accents, and a series of raised atforms create a sta a from whi h p g c patrons view the outside streetscape; and provide persons outside of the s ace a theatrical view of the events within p . the enclosure. Depending on further feasibility assessments, the activities structure could be develo ed and o erated b a ublic enti with ri ' ~ ~• p p y p ty p vase concessionaire part~cipat~on; ar as a possible public f private joint venture with occasional public activitv involvement; or even as a r . ~ ~ private venture subject to public lease and operating agreements. Park links e .. The existing parking area between the E uitable Buildin and First Interstate Bank could q g be acquired and redeveloped into a linear pedestrian linkage between East Broadwa and the two ark blocks located at the int r y . p e section of 8th Avenue and Oak Street. The design installs an entry faunta~n that ~s visible from East Broadwa and the ark. Street trees distinctive r y p st eetscape paving, and furnishings are extended through the linkage park space and across the Park Avenue to the park's existin corner. A seatin wall or latform and a rass berm are Bev I g ~ p g e aped along a screen~n wal between the linkage park and the bank teller access drive at First Interstate Bank. T e rass berm rovides casual seatin and . ... g p g sunning act~v~ties, and creates an impromptu stage for special events. Special standards are built-into the seating wall or platform to use the space for Saturda market vendors and activities linkin h ' ' ' y . g t e park with act~vit~es on East Broadway and Willamette. Sunken arden in front of the Aster Buildin The sunken terrace in front of the Aster Buildin is reduced in size to allow for overhead sidewalk and vehicular access improvements. T e sunken area is retained and redesi ned into a landsca ed arden area rovidin in g p g p g terest to persons on the sidewalk above, and outdoor I~ghting and accent to the occupants of .the below rode floor of the Aster Buildin , g g Clive Street 41ive Street between 8th and 1 oth Avenues is deli ned as a retail a street with • g tYP vehicular access, short-term parallel parking bays, and strafe call located sidewalk ex arse f ' ' ' • • g ~ y p , s or pedestrian activities and definition. The approximately 12-~4 foot traffic lanes provide a signed bicycle routing within the lanes between 13th and 5th Avenues. A s ecial street tree landsca a theme defin p es the corridor and provides shaded cover to the street p and,special pedestrian .areas. The parking portions of the street are curbed and aved with traditional street materials • p ,but the intersection with Broadway ~s made level with the pedestrian areas allowing the space to be used fors ecial events and activities. Th p e existing fountain is retained and made an accent within the redesi ned intersection activi g ty area., 8 Broa~v Design plan concept j'~ ~1J ~ ~ L y~„r ~+ ~.~+ ~ ~ ~ ~ ..,. .~ ..~ Rth Avan~ ~a `n `r' Bird's eye view of the intersection of Willamette Street and East Braadwa Avenue shawin y ~ the activities structure in the plaza space and the park l~nka a between the E unable Buildin ~ q g and Est Interstate Bank with bath convertible streets open far vehicular access. 1~ ii ii+ I~,~, ~~~&~~d Bird's eye view of the intersection of iNillamette Street and East Broadwa Avenue h y s owe ng the activities structure in the plaza space and the ark links a between the E uita 1 Buildin P g q . be g and Est Interstate Bank with both canvert~bie streets closed for edestr~an-onl activities Burin a s ecial event. p y g P 11 :.~ ~`. ,f.~ F ~~ ~ j r /. f+ •• ~ / / f `~, ' . r• ~ 1 '• ~B~.N }` /rC~~ ~ ~, ~ Rr ~ N J Bird's eye view illustrating a typical sidewalk activity, parking area, street trees, lighting standards, bicycle access, landscaping and paving materials alon a convertible street with g the street open for vehicular access. 12 ~~ ~~ ~~ ~~~ ~. ,. . . *,. ' , ~ ~~ ~ ' ., 1 4r '~Y~ ~ M ~~`~ ~~ t1~ ~~ P . ~ ,~ . ~ ~ S ti~ n 4/ `~ s !~~ ~ A.S t 1 r r~tl ~1~~ a ~f~ ^y. ~~~~ ~ ~ ~ + ~ i'' our ^+ 13 Street-level view from ~ 0th Avenue of Willamette Street with the convertibles ace o en for vehicular access. ~ P P A pendix A: ~owntown Redesign Principles -Retail Task Force. July 1990 The Retail Task Force contends that the success of revitalizin downtown is de enden t upon several factors one of which is th ' ~ p • - e implementation oft a Tenant MEx Plan. It is in turn assumed that the implementation of the Tenant Mix Plan re uires a redesi n which im roves access. As on q g p e component of an overall strategy for the revital~zat~on of downtown, the. redesi n should contribute to an im rovement in the economic an health n ~ d social . a d vitality of awntown Eugene. An evaluation rocess and measurement criteria will be establish p ed to determine the economic .and social im act of the redesi n. . p g 1: General Princi les The redesign should: a: Be consistent with and support the approved Tenant Mix Plan, b: Be consistent with the Metro Area Gener I P a Ian and the Downtown Plan. c: Incorporate a significant public involvement, public information com onent to allow interested ersons to artici ate in h p • p . p p t e design and to attempt to ach eve .cam mu n qty consensus. d: Retain pedestrian orientation with wide sidewalk areas allowin f r . g o full merchant and pedestrian zones. e: improve vehicle access to and circulation in the reater downtown considerin futur needs. ~ g g e f: Increase safety and perceived safety. g: Be designed to accommodate increased future densi , h: Be planned in phases sa that the redesi n can be im lemented increm g p entally. r: Address the needs of the downtown em to ee market. p Y. j: Accommodate access for people with disabilities at least at the current level, ~: Public Plaza The redesign should: a: Expand the public plaza at its present location at Braadwa and ~Nillamette and orien i more toward the Park BI Y t t ocks. b: Pay attention to the adjoining retail and commercial uses that would activate h t e plaza. ~ Make the plaza work well as the ma'or ublic atherin p g g space for community events and performances, including the Eugene Celebration and o en-air theater. P 3: limited vehicle access elements The redesign should: a: Create shared north/south access for pedestrians, bicycles and automobiles on WVillamette Street between 8th and 10th Avenues. b: Be convertible to allow street closure and allow expansion of the plaza space for major events, ~ Be reversible to allow permanent closure in the future if desired. d: Consider a variety of options regarding the scope of access, including one-way and two- wayvehicular traffic, and then develop a recommendation. e: Present recommendations for Qlive street between 8th and 10th Avenues with or without traffic, one-way or two-way vehicular travel, and options for using the existing water feature Changes to 41ive Street should be phased to follow relocation of the transit station.}. f: Keep West Broadway between Charnelton and Willamette closed to vehicular traffic. g: Present options on whether East Broadway should be opened or remain closed to vehicular traffic and examine the impact on the plaza. h: Consider whether buses can be accommodated on north/south streets without ~ . destroying pedestrian orientation. 4: Comfort fevel for users The redesign should: a: include public rest rooms. b: Consider compatibility with transit, including the transit station site. ~ Consider relationship with the proposed new library site. d: Discourage or prevent heavy truck use of north/south access routes. e:Include on-street, short-term laadin ba s. ~ Y f: Consider other parkin issues. g g: Support consideration and creation of a downtown mall shuttle loop or other people mover with vehicles scaled appropriately to an area with primary pedestrian use. 5:. S ecific deli n ro osa#s The redesign should include the following: a: The desi n of fixtures should be consistent with existing elements on West Broadway, between C arr~elton and Willamette, and other existing desirable elements. b: Improvements should be of the highest-quality materials and appearance. ~ New~water features should be considered. d: The design should be sensitive to the .uni ue characteristics and issues of the Aster .. .. q Building and the Atrium Building. CITY QF EUGENE QRDINANCE N0. E~HYBZT B CQMPREHENSTVE PLAN CQNSISTENCY FINDINGS I. ~ntroductinn Voter approval of City of Eugene ordinance No. I will allow the reopening of various streets in the Downtown Pedestrian Mall to traffic and reconstruction of the Mall in accordance with the Downtown Design in the Downtown Design Project Summary Report of July 29, 1991. Although the authorization in this regard is conditional upon voter approval, these actions, if undertaken, are legislative "land use decisions" under state Iaw and must be consistent with applicable comprehensive plan provisions. The City Council finds that the legislation allowing these changes is generally consistent with all applicable standards in the Eugene-Springfield Metropolitan Area General Plan Metro Plan), the Downtown Plan, and TransPlan. The rationale far this land use decision is summarized in the findings to City of Eugene Resolution No. ,the resolution calling a special election to refer to the voters the subject ordinance. The findings to this resolution are incorporated herein by reference. As set forth in the resolution findings, downtown development is essential to compact urban growth, which is one of the fundamental principles of the EugenelSpringfield Metropolitan Area General Plan. The current pedestrian mall is deteriorating physically. There has been a lack of significant private reinvestment in buildings fronting on the pedestrian mall. That portion of the mall which was reopened to motor vehicle traffic has had a significantly reduced vacancy rate for leased space. Mall businesses are experiencing a continued decline in their share of the area's retail and office market. Na new market space has been built in the downtown area since the early 1980s. The last two remaining department store anchors for the pedestrian mall relocated in shopping centers in 1989 and 1994. Fallowing the departure of The Bon in 199, other stores in that area have closed, and remaining stores report a decline in foot traffic and sales. The reopening and redesign of the Downtown Mall as contemplated will increase its ability to recruit and retain quality retail shops. This conclusion is based in part on the determinations of the Retail Task Force, the Downtown Design Committee, the Planning Commission, the Downtown Commission and consultants hired by the City, and the public response in the workshops, open house, public forums and questionnaire distributed by the Downtown Design Committee. The City Council recognizes that a difference of opinion may exist as to whether the proposed redesign and reopening of certain streets to motor vehicle traffic will be beneficial to the downtown area. Moreover, Transportation Element Policy ~ of the Metro Plan contains policy Exhibit B -Page 1 which requires the City to encourage the development of auto-free urban areas and transportation corridors. This policy has been considered and balanced with other relevant policies and objectives both in the comprehensive planning documents and elsewhere. The proposed redesign retains an autowfree area on Broadway between willamette Street and Olive Street and between Olive Street and Charnelton Street. As to willamette Street, Olive Street and portions of East Broadway, however, the auto-free policy is outweighed by competing policies in planning documents for the reasons set forth below. Although legitimate differences of opinion may exist, the Council concludes that the current mall arrangement does not further retail development and retention of businesses in and greater public use and revitalization of the downtown core. The proposed Downtown Design will better retain and encourage retail, office and public uses in the downtown area than the current arrangement. This conclusion is supported by the specific findings set forth. below. 1~I. Findin s on Consistent with Metro oZitan Area General Plan The Metro Plan designates the downtown area as a "major retail center." This land use category is described on page Zf-E-4 of the Plan as "having at least 25 retail stares, one or more of which is a major anchor department store, having at least 10D,DDD square feet of total floor space." The proposed Downtown Design is consistent with this type of land use. Construction of the downtown mall as set forth in the proposed design will encourage greater retail use of the downtown mall by increasing visibility of storefronts, improving customer access, and making the downtown area more pleasant. The following objectives and policies are the most relevant portions of the Metro Plan to the land use decisions at issue. All portions of the Metro Plan have been considered but the following objectives and policies from the Environmental Design Element, Transportation Element and Citizen involvement Element are the most significant. . A. Environmental Desi n Element Ob'ectives and Policies. Objective 3 and Policies ~, 3, 4 and 5 have bearing on the proposed Downtown Design. These objective and policies provide that; "Objective ~. Establish or maintain a sense of identity and character far local and neighborhood areas." "Pol~ rte. ~n order to promote the greatest possible degree of diversity, a broad variety of commercial, residential, and recreational land uses shall be encouraged when consistent with other planning policies." "Pol_ icy 3. The planting of street trees shall be strongly encouraged, especially for all new developments and redeveloping areas where feasible} and new streets and reconstruction of major arterials within the urban growth boundary." Exhibit B -Page 2 "Policy 4. Public and private facilities shall be designed and located in a manner that preserves and enhances desirable features of local and neighborhood areas that promotes their sense of identity." "Policy 5. Carefully develop sites that provide visual diversity to the urban area and optimize their visual and personal accessibility to residents." ~. This objective and these policies have been considered and applied in the proposed Downtown Design. Regarding Objective 3 and Policy 4, the convertible nature of Willamette and East Broadway, the unique plaza at Broadway and Willamette, and the use of special paving materials for sidewalks and roadways will maintain a sense of identity and character for the downtown area. with respect to Policy 1, the linkage to the park blacks and the encouragement of a greater variety of commercial and retail uses in the downtown area produced by the Downtown Design will allow for a greater degree of diversity in the downtown area than currently exists. 2. Implementing Policy 3, the Downtown Design Project Summary Report fat page G} notes that the Downtown Design emphasizes the use of street trees along Willamette and East Broadway, "A street tree theme provides overhead foilage that provides definition to the corridor, outdoor cafe and other pedestrian activity areas within the sidewalk spaces." Similarly, along alive Street the Report provides an page S that, "A special street tree landscape theme defines the corridor and provides shaded cover to the street and special pedestrian areas." 3. The West Broadway area of the current mall between Willamette and Charnelton Streets is a desirable feature of the current mall arrangement. Regarding Palicy 4, this area has been preserved and enhanced and its identity has been promoted through a new accent fountain to be located at the entrance to west Broadway that extends into and is visible from Willamette. 4. As suggested by Palicy S, the proposed Downtown Design has been developed in order to provide visual diversity to the downtown area and to increase accessibility to the downtown area to residents of Eugene. Diversity will be increased through construction of an indoorloutdoor activity structure which will house a performance stage, food vendors and public restroams. Visibility will be increased through the introduction of traffic to Willamette Street, East Broadway and alive Streets. Accessibility to the mall will be enhanced through development of the linear pedestrian linkage between East Broadway and the two park blocks located at the intersection of Sth Avenue and Oak Street and the reintroduction of motor vehicle traffic on selected streets. B. Transportation Element objectives and Policies. The most relevant objectives and policies _... ,. ,....., x. .... ~ ~,.,,, ~ . ~ _ ,.__ in the Transportation Element of the Metro Plan are objectives I and 9 and Policies I, 2a, 2f, 2g, 4, ~ and G. These objectives and policies provide that, "Obj~ective_ 1. Maximize the benefits and minimize the direct and indirect negative effects of transportation upon the social, economic and natural environment." "Objective 9. Reflect changes and conditions, community needs, and technologies appropriate for this community when developing transportation alternatives through future studies and updates of existing plans." Exhibit B -Page 3 "Pol_ icX 1. The goals, objectives, policies, facilities, and services contained in the adapted EugenelSpringfield Metropolitan Area Transportation Plan ~TransPlan~ shall serve as the basis for guiding surface transportation improvements in the metropa Stan area ..." "Polemic ~Z. The following recommendations are, from a transportation standpoint, geared toward reducing transportation energy demand and improving opportunities for using alternative modes .. . "a. Growth of downtown Eugene and Springfield as commercial, residential, civic and employment centers shall be encouraged .. . "f. Development and redevelopment shall be encouraged in designated areas which are relatively well-served by the existing or planned urban public transit system. "g. An active program to develop pedestrian pathways; e.g., sidewalks shall be encouraged, especially in proximity to major activity centers or in conjunction with other modes of travel." "Pol__ ic~_4. Encourage the development of auto~free urban areas in transportation corridors." "Po11C~. New developments shall include consideration of improvements which would accommodate urban public transit and other alternative modes." 1. Regarding objective ~, the direct and indirect negative effects of motorized vehicle use upon the social and economic environment of the downtown mall have been considered in the formulation of the Downtown Design. The design contains narrow traffic lanes for slow, controlled traffic, limited parking, and the design of Willamette and East Broadway as convertible streets in order to limit the amount of motor vehicle traffic in the downtown area. At the same time, the intent of the proposed Downtown Design in opening Willamette, Olive and East Broadway to traffic is to increase the visibility and accessibility of the downtown area. Z. Emphasis on pedestrian use of the downtown mall has been retained in the Downtown Design. Willamette Street and East Broadway will be convertible streets open to pedestrian activities on occasion. wide sidewalks and public gathering spaces, such as redevelopment of the parking area between the Equitable Building and the First interstate Bank, exist in order to encourage pedestrian use of the downtown mall area. The development of the central plaza area will encourage pedestrian use of the heart of the downtown area. Thus, the benefits of motor vehicle access increased access and visibility have been maximized. The negative effects of motor vehicle traffic has been considered in decisions to limit traffic use of willamette and East Broadway and continued emphasis on pedestrian uses of the mall. 3. Under Objective 9, this change in the design of the Downtown Mall reflects changes in the condition of downtown and community needs for this area that have occurred since the Exhibit B -Page 4 development of the Downtown Mall in the 1964's. The downtown area no longer has major department stores. Retail uses are now specialty stores requiring greater community visibility. 4. The experience in Eugene with respect to pedestrian malls is similar to other communities. As more particularly set forth in the findings to Resolution No. ,pedestrian malls in American cities over the past two decades have largely been unsuccessful. Most pedestrian-only malls built ~0 to 20 years ago have been removed or significantly changed. Mails with linear design, intercepted by traffic streets, or malls with shared automobile ar transit access are ones that have continued to have same success. The City Council finds that the deterioration of retail activities in the downtown area has partially been a function of the extensiveness of the current pedestrian mall. 5. Although the question is not free from doubt, the implementation of the proposed Downtown Design will require amendment to TransPlan. The proposed Downtown Design affects alive Street, Willamette Street and East Broadway. The portion of 41ive Street affected by the Downtown Design serves as a collector, would have three or fewer lanes and can be considered in the future as a proposed amendment to TransPlan "not of regional significance." The portion of Willamette Street affected by the design serves as a local street and does not require an amendment to TransPlan. The designation of alive Street as a designated bicycle route can be considered in the future as a proposed amendment "not of regional significance." Any futher role of mass transit in the Downtown Design can be addressed in future amendments to TransPlan, depending upon decisions on transit routing. The introduction to TransPlan (page 2~ suggests "that modifications to TransPlan not requiring amendments will be reflected at regularly scheduled updates to keep TransPlan an effective public information document." The relevant portions of the Downtown Design requiring amendment will be submitted as an amendment to TransPlan before the design is implemented. other improvements not requiring amendments will be reflected in TransPlan as part of future updates. ether applicable policies in TransPlan are discussed below. As set forth therein, the proposed Downtown Design is consistent with the policies of TransPlan. TransPlan street project listings will need amendment before reconstruction of the mall as set forth in the proposed Downtown Design. G. Policy 2a is satisfied. implementation of the Downtown Design will encourage growth of downtown Eugene as a commercial, residential, civic and employment center. The Downtown Design has been referred by the Council to the voters because of the Council's conclusion that the introduction of automobile traffic to portions of the Downtown Mall and the redesign of various areas of the downtown will act as a catalyst to retail and commercial activities in the downtown core. Under Policy 2f, it is appropriate to encourage this development and redevelopment in the downtown area which is well served by Lane Transit District, the existing public transit system. The existing public transit station is on ~Oth Avenue bordering the area of the proposed redesign. Exhibit B -Page 5 7. The proposed Downtown Design emphasizes pedestrian pathways, sidewalks and areas in proximity to the central plaza and the downtown retail area and in conjunction with bicycle paths and the existing transit station. 1t implements Policy 2g. S. Policy 4 is generally satisfied and has been considered in conjunction with other policy objectives. As noted earlier, the retention of an auto-free urban area along the West Broadway access of the mall is part of the proposed Downtown Design. The convertible nature of Willamette Street and East Broadway allows their use as "auto•free" areas. The City Council interprets Transportation Element Policy 4 of the Metro Plan to not mandate the maintenance of existing auto-free urban areas, but rather to encourage their development where appropriate. The Council finds that the negative effects of the current pedestrian mall outweigh any advantage to the community by the retention of all portions of the downtown mall as an "auto-free urban area." The development of such areas will be encouraged in other parts of the City of Eugene. 9. Under Policy 5, the proposed Downtown Design reflects cons~derat~on of improvements which would accommodate urban public transit and other alternative modes. These considerations are discussed in Finding D2 below. The proposed 12 to 14 foot traffic lanes on Olive will provide a signed bicycle routing within the lanes between 13th and 5th Avenues. The design allows for bicycle use of reopened portions of Willamette Street and East Broadway, where bicyclists currently must walk their bicycles. The precise means of accommodating urban public transit will be considered during implementation of the Downtown Design. The proposed Downtown Design, however, precludes large bus traffic on Willamette and East Broadway because of a desire to minimize the negative impacts of motor vehicle access on areas adjacent to these streets. C.f., Qbjective 1 of this element. C. Citizen Involvement Element Qbjectives and Policies. The following objectives and policy are relevant to the decision in question: "Qbject~, ive 1. Promote and strengthen communication and coordination among various citizens' organizations; business, industrial, and other groups in the community; and between these groups and government." "Qh'ective 2. Ensure adequate opportunities and provide adequate support for citizen involvement in metropolitan planning and related issues." "Policy 2. Maintain and adequately fund a variety of programs and procedures far encouraging and providing opportunities for citizen involvement in metropolitan area planning issues ... " ~. There has been ample opportunity for citizen involvement in the development of the Downtown Design, The Downtown Design reflects the deliberation of the Retail Task Force appointed in August, 1989, the May, 1990 telephone survey of 400 Eugene residents, the voter opinion survey of June, 1990, the Downtown Design Committee deliberations including four workshops, a Eugene Celebration open house, two public forums, and a questionnaire published in the Register-Guard}, the response to the final design questionnaire published in the Register- Guard, and the recommendations of the Planning Commission and Downtown Commission. Exhibit B -Page 6 2. The Downtown Design Committee was composed of across-section of downtown property, retail business, employee, resident and other interest groups in the downtown area. There was broad community representation an the Retail Task Force, including a representative from Lane Transit District. 3. Approval of the Downtown Design by the electors of the City of Eugene has been sought by referring City of Eugene ordinance No. to the voters for approval or rejection at the May 21, 191 election. This is the last and most significant citizen involvement step in the development and implementation of the proposed Downtown Design. ZZZ. Downtown Plan The Metro Plan is supplemented by more detailed refinement plans, programs and policies. Two refinement plans are directly relevant to the proposed Downtown Design: The Downtown Plan and TransPlan. A. Downtown as Commercial Center Destination Point and Nei hborhaod Element. ;Ten policies of the Downtown as Commercial Center, Destination Point and Neighborhood Element of the Downtown Plan are relevant. These are Policies 1, 2, 3, 4, G, 7, 10, 12,13 and 1G on pages 14 to 1G of the Downtown Plan, which provide as follows: "PolicX_~. Recognize and reinforce diverse functions in the downtown." "Pol~,~icy 2. Promote intensity of development and use." "Pol,~ ic~3. Maintain and improve the downtown's ability to serve as a major employment center, including attention to maintaining downtown as ahigh-quality work environment for employers and employees." "Pol.iG~4. Strengthen downtown's role as a destination point far cultural and tourist activities and assist local businesses in capturing possible economic spin-offs." "Pal~cv G. Recognize the need for the mall to remain apeople-oriented place while providing an attractive environment for business." "Polk 7. Enhance and maintain public facilities and services to promote a positive image and increase use of downtown." "Polk 14. Provide space downtown for public gatherings." "Polk 12. Encourage street activities that occur daily, weekly, monthly, or seasonally." "Polio 1:3. Enhance existing modes of nighttime activities and improve the pedestrian routes used between such centers." "folic 1G. Strengthen ties between downtown and the surrounding park system." Exhibit B -Page 7 1. With respect to Policy ~, the proposed Downtown Design will increase the diversity of activities in the downtown area. ~n particular, the indoorloutdoor activity structure will house a performance stage, food vendors and public restrooms and will allow for greater intensity of uses during cool weather and in the evenings. Broadway and Willamette will continue to be emphasized as the central information point and public gathering space. This public plaza will promote intensity and development and use of the downtown area. The addition of vehicular traffic to Olive Street, Willamette Street and East Broadway will also increase access and visibility to the downtown area and thus promote intensity of use as suggested by Policy 2. This greater access and visibility and the construction of a major public gathering space in the downtown area will improve the downtown's ability to serve as an employment center and strengthen downtown's role as a destination point for cultural and tourist activities under Policies 3 and 4. 2. Policy 6 has been considered and applied. The proposed Downtown Design recognizes the need for the mall to remain a "people-oriented place." There is particular emphasis on pedestrian amenities and limitation of the intensity of vehicular traffic in the proposed redesign of Willamette Street, 41ive Street and East Broadway. ~ The central plaza area of the downtown mall will be strengthened and enhanced under Policy 7 and continue the emphasis of the mall as a "people-oriented place." The indoorloutdoor activity structure and central plaza design directly implements Policy 14 of this element of the Downtown Plan by providing a space at the intersection of Broadway and Willamette for public gatherings. .Another ,public gathering place in the proposed Downtown Design is the linkage park space between East Broadway and the park a blacks. The construction and re-construction of these spaces will encourage street activities to occur on a periodic basis under Policy ~2. 3. Policy 13 of this element calls for evening activities along pedestrian corridors, including areas between the Hult Center and Hilton Hotel. Existing nighttime areas along 'Willamette Street both north and south of the existing mall will continue to be linked by wide sidewalks for pedestrians as called for in the proposed Downtown Design. There is a potential for additional nighttime activities in the downtown mall given increased motor vehicle access and construction of the indoorloutdoor activity structure. 4. The proposed park linkage between East Broadway and the two park blocks directly implements Policy 16 of this element. B. Downtown Develo ments Services and Marketin Element. Policies 4 and 7 of this element are relevant. They provide that, '"Pol_~ic~ 4. Support and revitalize existing retail activity downtown." "Polic~7. Facilitate development downtown that is consistent with the community's goals for the city center." ~. The Council concludes that the proposed Downtown Design by increasing access and visibility of the downtown area and making improvements which will promote public gatherings and events, will revitalize existing retail activity in the downtown area and implement Policy 4 of this element. The proposed Downtown Design will facilitate development that is consistent with Exhibit B -Page 8 the community's goals for the city center. These goals are reflected not only in the Comprehensive Plan policies applicable to this land use decision but also in the voter surveys, polls, and questionnaires that played a role in the development of the proposed Downtown Design. Confirmation of consistency with the community's goals will occur if the proposed Downtown Design is approved by the voters at the May election. C. Downtown Access Circulation and Parkin Element. Policies 1 through 5 of this element are relevant to the decision and provide that, "Polic 1. rmprove access and entrances into downtown fram the regional transportation system." "Pol~ icy 2. Provide better access within downtown and links between downtown and other mayor activity centers." "PaI. icy 3. Continue efforts to aggressively promote access to and circulation within the downtown by bicycles, mass transit, walking, car pooling, and other alternative modes of transportation." "Pol_ icy_ 4. Encourage actions that will recognize the role of various streets and maximize their use for access to downtown and circulation and parking within downtown." "Pol_ icy 5. fmprove access to specific points in the mall by people using a variety of transportation modes and take steps to reduce the size of the mall." 1. As suggested by Policy 1 of this element, the recommended design proposes access into the center of downtown along East Broadway fram yak Street. It would provide a link along both 41ive and 'Willamette Streets from 6th and 7th Avenues (part of the state highway system). These connections would provide additional entrances and connections from the regional transportation system into downtown from the north and east. 2. The proposed Downtown Design implements Policy ~ of this Element by continuing East Broadway between yak and Willamette, extending a previously-implemented strategy providing two-way traffic along Broadway between Pearl and High Streets. The recommended design for alive Street allows far connection on alive between the center of downtown and the 5th Avenue area. 3. Under Policy 3, the proposed Downtown Design continues efforts to aggressively promote access and circulation within, the downtown area by providing a designated bicycle route on reo ened ortians of alive Street, providing a northlsouth connection where none currently p p exists. The design also allows far bicycle use of reopened portions of 'Willamette Street and East Broadway, where bicyclists currently must walk their bikes. Separate facilities in the form of wide sidewalks for pedestrians will continue to promote pedestrian circulation in the downtown area. Specific provision for transit use of the Downtown Design will be determined prior to implementation. Exhibit B -Page 9 4. Policy 4 of this Element is implemented by the proposed Downtown Design through provision of a reopened street along alive Street, to encourage it to be more auto-oriented, while providing a "convertible street" design encouraging slower and lesser amounts of automobile traffic along the reopened portions of Willamette Street and East Broadway. Each of the streets will accommodate on-street parking and will contribute in differing degrees to access, circulation and parking downtown. 5. The proposed Downtown Design most directly implements Policy 5 of this Element.. It improves access to the remaining mall area by increasing access by bicycle and motor vehicles and by providing wide sidewalks for pedestrians. It proposes to reduce the size of the mall by eliminating portions of the mall along alive Street and by providing a "convertible street" on Willamette Street and on East Broadway. Such a facility can be open to traffic much of the time, while allowing far street closures and auto-free pedestrian areas for special events. 6. The proposed central plaza area set forth in the Downtown Design is consistent with the vision for the central market and plaza area set forth on page 37 of the Downtown Plan. IY. TransPlan As noted earlier, an .amendment to TransPlan will be necessary to add particular improvement projects to the project title, description and jurisdiction listings from the Street and Highway Project List portion of TransPIan. The proposed Downtown Design, however, is consistent with applicable policies set forth in the text of TransPlan. These policies include Policies P~-5, I-7, I-S, I-9, . I-11, I-12 and AM-4 on pages 5 through 8 of TransPlan, which provide as follows: "Polk PC-5. Ensure that all transportation modes are- considered and addressed in transportation projects and land development proposals." "Palk I-7. Include on-street bike lanes in construction or reconstruction of arterial and collector streets, unless bike facilities are determined to be unnecessary." "Polk I-~. Include sidewalks and construction or reconstruction of all collector and arterial streets, except freeways or expressways, unless determined to be unnecessary." . "Polk I-9. Provide for bus turnouts, passenger shelters and passenger loading improvements .and construction and reconstruction of all collector or arterial streets, unless they are determined to be unnecessary." "Folic r-11. Provide street lighting and construction or reconstruction of streets and highways." "Folic I-1Z. Provide landscaping on street construction of reconstruction projects." Exhibit B -Page 1 ~ "folic AM-4. Provide improved bicycle, pedestrian and handicapped facilities, where appropriate, in connection with street construction and reconstruction projects and intersection improvements." 1. All transportation modes were considered and addressed in the drafting of the proposed Downtown Design. A representative of the Lane Transit District was on the Retail Task Force. The Downtown Design Committee considered bus access to the reopened streets. Design constraints were placed on the width of the streets in order to avoid bus access to the convertible streets of Willamette Street and East Broadway. The design of dive Street would allow for signed bicycle routing on dive between ~3th and 5th Avenues. fin-street bicycle lanes were considered but determined to be not feasible given the desire to retain wide sidewalks and other design constraints. Bicycle access would be allowed on Willamette and East Broadway when such streets are opened. Sidewalks and pedestrian ways have been included in the Downtown Design and in the reconstruction of Willamette, East Broadway and Clive Streets. Provision for bus turnouts, passenger shelters and passenger loading improvements were considered in the proposed Downtown Design but were determined to be unnecessary at this time. The current mall bus transit station is located on 14th Street immediately south of the redeveloped portions of the mall. Appropriate street lighting and landscaping are included in the prposed Downtown Design. ~. Policy AM-4 is satisfied in a variety of ways. Wide sidewalks and a designated bicycle route are called for in the proposed reconstruction of dive Street as part of the Downtown Design. Wide sidewalks and "convertible" streets are proposed as part of the design to provide for pedestrian travel and continued use of the affected portions of Willamette and East Broadway. The restroam facilities which are part of the central plaza area will be accessible to the disabled. Wheelchair ramps will be provided at intersections. V. Conc~~~s~on There is no comprehensive plan policy or objective which directly precludes the reopening of certain streets of the Downtown Mall to motor vehicle traffic ar that prevents implementation of other features of the proposed Downtown Design. Whether the proposed Downtown Design better implements applicable policy than the current mall design is a matter of judgment, ~t is the City Council's determination that implementation of the proposed Downtown Design is in the community's best interest and that such implementation carries out the community's goals far downtown. Exhibit B -Page 11