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HomeMy WebLinkAboutOrdinance No. 19523ORDINANCE N0. ~ S Z 3 AN ORDTNANCE ADOPTTNG THE SOUTH WTLLAMETTE SUBAREA PLAN. The City Council of the City of Eugene finds as follows: 1. On April 14, 1986, the Eugene City Council, on the recommendation of the Planning Commission and Downtown Commission, directed the develo ment P of a Centra] Area Transportation SCAT} Study including a review of the im- pacts of conversion of Willamette Street to two-way traffic between 13th and loth on zoning and land use along Willamette Street. Z. Tn the summer of 1986, the Eugene Planning Commission began develop- ing the CAT Study including the Sauth Willamette Subarea Study to address the land use concerns. 3. Tn February, 1987, the draft CAT Study and the South Willamette Sub- area Study were released for public review. 4, on February 16, 1987, the Department of Land Conservation and Development was forwarded a copy of the draft CAT and South Willamette Sub- area Study, On February 19, 1981, residents and property owners in the South Willamette Subarea Study area, and other interested parties were sent a letter informing them of the availability of the draft Study, and a notice of the public hearing dates. Throughout February and March, 1981 staff attended several neighborhood and community group meetings to discuss the draft Study. On March 11, 1987, the residents, property owners and inter- ested parties were sent a postcard inviting them to a public information session, and reminding them of the public hearing dates. On April 8, 1987 staff held a public information session at City Hall between x1:30 a.m. and 1:30 p.m, and between 4:30 p.m, and 6:30 p.m. an the draft Study. Ordinance - 1 5. On April ~7, X981, the Eugene Planning Cammission held a public hear- ing on the draft Study. The Planning Commission held work sessions on May ~l, May I7, and a faint meeting with the Downtown Commission on May 28 on the draft Study. On June 1, I987, the Planning Commission forwarded the CAT Study and Appendix A the South Willamette Subarea Study} to the City Council. 6. 0n June 8, 1981, the Eugene City Council held a public hearing on the Draft CAT Study including Appendix A, and the recommendation forwarded by the Planning Commission. 7. On July 2l, X987, the Eugene City Council considered the ado tion of p the Draft CAT Study Appendix A South Willamette Subarea Study . The Cit ~ y Council referred the South Willamette Subarea Study back to the Plannin Com- g mission far additional review and comments an Recommendation # 5. 8. On September ~1, X987, the Eugene Planning Commission held a work session to review Recommendation # 5 of the South Willamette Subarea Stud Y and conducted a tour of the affected area. At the conclusion of the work session, the Planning Commission forwarded a revised Recommendation # 5 to the Eugene City Council. 9. On December 1, X987, the Eugene City Council conducted a tour of the South Willamette Subarea and held a work session to review the revised recommendation approved by the Planning Cammission. ~0. Based on the above records and findings, the City Council concludes that the February, X987 Draft CAT Study's Appendix A, South Willamette Sub- area Study, as amended and reprinted as the South Willamette Subarea Stud , y is consistent with the Eugene-Springfield Metropolitan Area General P1 an and other applicable plans and po]icies, and therefore consistent with Statewide Land Use Planning Goals. NOW, THEREFORE, Ordinance - 2 THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS: Section ~. Based on the above findings which are incorporated herein, the recommendations set forth in the South Willamette Subarea Study, attached hereto as Exhibit A, are hereby adopted as a refinement of the Eugene- Springfield Metropolitan Area General P1 an for the area covered in the South Willamette Subarea Study. Section 2. The Revisions and Errata of December 7, 1987, as set forth in Exhibit B, attached hereto and incorporated herein by reference, are adopted as revisions to be incorporated in the South Willamette Subarea Stud . y Section 3. The amended Map A-3, Sumr~ary of Land Use Recommendations for the South Willamette Subarea Study, is attached hereto, marked Exhibit C, and by this reference is incorporated herein. Section 4. The City Council hereby adopts as additional findings the supporting text, maps, and tables contained in the South Willamette Subarea Study attached hereto and incorported herein by reference. Passed by the City Council this 7th day of December, 1987 ~~~ City Recorder Ordinance - 3 Approved by the Mayor this So~t~ Wi~~a~ett~ suba~~a study EXHIBIT A introduction During the Winter and Spring of 198b the community debated the issue of whether or not to convert Willamette Street between 11th and ZOth to two-way traffic. Reasons cited to support the proposed conversion included the need to restore Willamette as the main street of Eugene; the need to provide a formal entrance and improved access into downtown; that commercial activities along Willamette would improve with two-way traffic; and that an entry to downtown along Willamette would improve the identity of downtown. Reasons cited , i n apposition to the carvers i on included the safety impact of two-way traffic and increased traffic volumes on those wishing to cross Willamette Street at the lath and 15th Avenue bicycle crossings and for pedestrians at 16th Avenue; the loss of on-street parking and commercial loading in the 1700 block; the high costs associated with rebuilding/providing increased capacity at the 18th Avenue intersections}; the negative impacts of two-way traffic and increased volumes on the residential uses and on property values between 18th and ~Oth Avenues; and the perceived negative impacts on adjoining areas associated with potential spillover traffic. Two public hearings were held: a joint Planning Commission and Downtown Commission public hearing and a.City Council public hearing. The planning Comm~ss~on and Downtown Cor~m~ss~on recomr~ended: that Council direct staff to convert Willamette Street to two~way traffic between 11th and 13th in an expedient manner and identify an appropriate crossing for bicycles and pedestrians at 1Zth Avenue, Recognizing that it is the intent of the Commissions to reestablish ~1i11amette as a major corridor into Downtown, the conversion of 13th to ZUth is to be included for study in the Central Area Transportation 5tudy...The f~11 owl ng concerns are to be addressed as part of the study: 1} Identify the financial implications of converting Wi11a- mette to two-way traffic between 13th and ZOth; ~~ 2} Investigate providing safe and appropriate crossings for autor~obi 1 es, bicycles and pedestrians i n the corridor; 3} Consider the land use impacts of converting Willamette, particularly in the 18th to both area; and 4} Consider the impacts of the conversion on adjoining neighborhoods. The City Council accepted the proposed recommendation of the Planning and Downtown Commissions and directed staff to proceed with converting Willamette street to two-way traffic between 11th and 13th Avenues, including bicycle and pedestrian crossings, and to study the remainder of the issues during the Central Area Transportation study. Page 2 Willamette Street was opened to twoWway traffic between 11th and 13th Avenues in December, 19Sfi. The project included a pedestrian/bicycle crossing at 12th Avenue. The South Willamette subarea study was published as Appendix A of the February 198 Craft Central Area Transportation Study, It is intended to address ail four items in the above recommendation: to consider the land use impacts of the conversion, particularly in the 18th to loth areas, and on adjoining neighborhoods to~identify safe bicycle and pedestrian crossings and tv ~dent~fy the financ~ai impacts of converting Willamette Street to two-way traffic. The Stud Area The area studied in this land use study was generally a block deep on each side of Willamette from 17th Avenue to 24th Place. Staff examined existing uses, existing zoning, and planned uses as called for in the ~Ietropoiitan Area General Plan Diagram. Existing use was compared with existing zoning and with planned use, and existing zoning was compared with planned use, Land use application activity was researched for the area over the last twenty years. In general, it was found that there was conformance between existing uses, existing zoningaand planned uses. .Results of the study, a summary of the analysis scenarios and recommendations are given below. Exi sti n zoni n zoning along the Willamette Street corridor is gevgraphicaliy separated into two.general groupings: commercial and office zoning north of 19th, and res~dent~al.zon~ng south of 19th. The mayor exceptions to this generalization are the C~v~c Stadium/ School District 4-,l bus garage which is zoned Public Lands ~ PLC ,and ,the Parkway Wi i l a~nette complex immediately south of Ci vi c Stadium which ~s zoned for office use {G4~. Commercial zoning begins again south of 24th P1 ace ~C-2~ . The zoning along Clive Street is for low-density residential uses ~R-1~. North of 11th, along Clive the zoning provides for higher uses {R-~ and R-4~. The zoning along DakeStreet between Zoth and 19th is primarily law-density residen- t~al ~R-1}. Moving north along Oak, north of 19th on both sides of the street for a half block is medium density residential zoning ~R-3}. The half block south of 18th is for office uses ~GD~, and property along Oak north of 18th is commercially zones ~C-Z~. Please refer to Map Al for current zoning. Ex~ sti ~tg L,and, Use --^i for - u- Existing 1 and use parall e1 s zoning fairly c1 ose1y with few non-conforming uses. There have been eight conditional use permits approved within this stud area sine y e 19b7, three of these have been on the same parcel. The west side of Willamette between 19th and 24th Avenue is in residential use. The block vn.the west side between 24th Avenue and 24th Place is a dental clinic, somewhat residential in character. on the west side, north of 19th s there exists a grouping of office uses in former residential units, and a single lot commercial use at 18th Avenue. The character north of 18th is predominantly mixed commercial and office. Page 3 The east side of Willamette is generally in office and commercial use from 19th north. Between 19th and 24th is a row of single family residences, except far an office use at the corner of loth. Across 20th is also an office use, south of which are mu1 ti pi e-family dwe11 i ngs . Moving southward, Civic Stadium and the Parkway Willamette complex reach to 23rd. 23rd to 24th Place is residen- tial, except for the northeast corner of 23rd Place and Willamette which is in office use. South, across the street on 23rd, is another office use, The remainder of Willamette on both sides is primarily commerci a] extending beyond 29th Avenue. This study recommends that the lot an the southeast corner of ~1i11amette and 24th P1 ace be rezoned to General Office from C-~ in order to preserve the soft transition from the residential uses north of 24th Place to the commercial uses south of the subject parcel. Land use i n the block bounded by 19th, 20th, oak and Wi 11 amette i s 1 ow-density residential except for the office use mentioned above. The southeast corner of the next block northward is low-density residential, while the remainder of the block is in commerci a1 and office uses, The southeast corner is also the subject of a recommendation, namely, that the Metro Plan be refined by this study to support the continuation of the medium-density zoning which is applied to these parcels. Property on the east side of Dak Street is residential from the alley south of 18th to Civic Stadium. Like the zoning, the area north of 18th between Dak and ~1i 11 amette i s i n commercial and office use. Planned hand Dse The Metro Plan.Diagram sets out three general land use categories within the study area, Like Zoning, these categories generally reflect and support existing uses. The Metro Plan Diagram indicates a large commercial node in the 19th to 17th, Willamette to Dak area and residential uses along Willamette from 19th to 24th Place. The east side of Willamette is designated for medium-density residen- tial uses, and the west side for low-density. The area south of the study area, on bath sides of Wi 11 amette i s designated for commerci a1 use. This study recommends that the medium-density residential designation for the Schaal District-owned Civic Stadium and bus garage be supported. The reasonin 9 is two-fold. Pirst, the eventual use of the site for medium-density residen- tial use supports the compact urban growth form concept of utilizing the ex~ sty ng ~ nfrastructure such as sewers and roads . The second reason i s that residential use in this site is compatible with surrounding residential uses to the north, south and west. Lam a Sumrnar In general] the existing zoning and planned use as indicated on the Metro Plan Diagram are compatible, with one large exception. The Plan Diagram indicates law-density residential uses on the west side of Willamette, enerall from 24th P ~ 9 , Y lace to 19th Avenue. This same section along W~1lamette ~s zoned R-3 far Page 4 medium-density residential uses. Most of this entire stri is develo ed with 1 ow-de p p ns~ty res~dent~al uses except for an apartment complex between 23rd and 22nd and a dental clinic between 24th Place and 24th Avenue. The dental clinic was developed through a conditional use permit in 1977. Fi nanci a1 Im 1 i cati ons CATS scenarios FZ, F3, and F4 include Willamette Street as a two-way street between 13th and lath Avenues. TRANSPLAN modelling of future traffic volumes on Willamette Street indicate the following conditions for each scenario: TABLE Al FUTl1RE TRAFF ~ C v4LUMES Willamette Street Two-way Conversion Willamette St. Existing F1 F2 F3 F4 Section NB SB N8 SB NB SB NB SB NB SB 13th - 18th -- 7~gD -- 9300 5200 1a0fl0 5700 10200 6700 59x0 18th ~ 19th ~- looao -- 12000 51aa ~2~ao 550012300 la5oo ~8on 19th - 24th -- 8200 -- 90oD 4800 9100 5200 9200 9600 4500 The circulation analysis section of the report indicated the following projects would be directly required by this conversion from one-way operation: TABLE A2 RFCOMMF~NO~ED STREET IMPRwEMENT PROJECTS W i 11 amette Street Two-way Convers i an Prat' # Location Descri tion Scenario F1 F2 F3 F4 ~ Signal System * Implement TRANSYT-1F, add 18th/19th ~to s stem x x y x x 23 W~1lamette @ 19th New Signal x x X 24 Willamette St. Remove Pkg BSS 17th-20th, 258, 1NB; Ped x-in s x g x 25 Willamette @ 13th Si gnat MOd~f~cat~on x x x 30 Willamette St. Rem Pkg EIS 11th-19th, 1NB,1S8+LTs; Ped x-in s 9 x x 31 Willamette @ 20th New Signal x X *This is a portion of project #1 which would install new traffic controllers nd the signals on east 18th and I9th with t a. • he city s central computer. This port~an would only involve the ~ntersect~vns of Willamette, oak, Pearl and Hi h which i considered essential for the r • g ~ s p oiler functlon~ng of the 18th and Willamette ~ntersect~an. These projects are described in the circulation analysis section, The estimated project casts are shown below: Page 5 TABLE A3 WILLAMETTE STREET COSTS Praj. # Descri tion F1 F2 F3 F4 1 Signal System -Add 18th/19th * 12.0 12.a 72.0 12.Q 23 Willamette @ 19th - New Signal 15.o 75.0 15.4 2~ W~~~amette St• 13th -~ Zath 68.0 68.0 25 Wi 11 amette @ 13th - Signal l~o~d. 1.6 7, 6 T.6 3D Willamette St. 11th - 19th 55,E 31 Wi11 amette ~ 20th - New Si nal 15.0 Total Cost 12.4 222.6 222.6 285.D *This is a portion of project #1 which would install new traffic controllers and connect the signals on east 18th and 19th with the city's central computer, This portion would only involve the intersections of Willamette, Oak, Pearl and High, which is considered essential for the proper functioning of the 18th and Willa- mette intersection . Willamette Street Crossin s The addition of approximately S,QOO northbound vehicles per day to Willamette Street between 13th and 20th Avenues will adversely affect the ability of pedestrians, bicycles, as well as vehicles to cross Willamette street. Not only will there be less tame between vehicles in the traffic stream, but there will be two stream directions instead of one. The major crossings of Willamette street are: for bicycles at 15th Avenue, and far pedestrians especially the elderly at loth avenue. Neither intersection alone meets signal warrants as set forth in the Manual on Uniform Traffic Control Devices. We should not expect that these two crossin s 9 could be combined in order to signalise one of the intersections. 15th Avenue is a well established crosstown bike route extending from the University of Ore on to the Fern Ride Path• ~ , g g , and the current elderly signed crossing links dest~na- tions which are south of 16th Avenue on both sides of Willamette. The solution proposed in this study is to reduce the distance of the crassin s 9 and provide better sight distance by extending the curblines at both intersec4 tons 6-feet into the parking lanes on both sides of Willamette Street. This will reduce the distance of the crossing from 48-feet to 3fi-feet, and lace the edestrian or c clist at P p y a point where they can see beyond any parked vehicles. The estimated cast at each ~ntersect~on would be $25,OOo and is included in projects 2~ and 30 listed above. Page 6 At the south end of the subarea study, the additional northbound traffic on Willamette Street ~na~kes the intersection of 19th and Willamette exceed the peak hour signal warrant. In scenario F~4, the reversal of Oak Street to southbound flow require a signal at loth and Willamette to allow these two southbound movements to combine. Recommendations This section of the study contains recommendations on land use and compatibility among major designations. The following recommendations were presented for consideration during the review of the CAT Study. 1~ Rezone the lot on the east side of Willamette, south of 24th Place from C-2 to General Office, to support the transition from residential north of 24th Place to commercial south of the subject lot. ~~ The southeast corner of the black between 18th and 19th, Oak and Willamette i s currently zoned R-3 and occupied with l ow-density res~dent~al uses. This four lot area faces residential develop- ment across Oak Street and across 19th Avenue. The uses on the re~nai nder of the block are office or commercial but are oriented toward Willamette or 18th Avenue. This study recommends that the Metro Plan be refined to support the continuation of medium- density zoning as an appropriate use for these parcels, Additionw ally, traffic projections far a two-way Willamette Street indicate a 3000 vehicle decrease on Oak between 18th and 2flth, which also supports the continuation of the integrity of residential uses in the area. 3~ The school District-owned Civic Stadium and bus garage property is apprapri atel y deli g~nat~ed for medium density residents al devei Op- ment an the Metro Plan Diagram, but should remain zoned Public hand as long as the Civic Stadium use remains, ~~ Commercial or office zoning along Willamette between 19th and 24th :Place should not be expanded. The area should appropriately remain in residential uses as it is designated in the Metro Plan Diagram. The traffic volumes projected far a two-way Willamette in this section are approximately 12,000 vehicles per day, an increase of 4,400. This level of traffic is lower than several other arterial streets which are primarily residential: 18th Avenue, 11th Avenue between downtown and Garfield street, and Patterson south of 24th, Staff feels that the projected increase in traffic volumes does not support the conversion of residential to office or ~cammercial uses. 5~ In recognition of existing mix of low, medium and high density residential uses and the current zoning on the west side of Wi 1 l amette between 19th Avenue and 24th P1 ace, this study recvm Page mends that the Metro Plan diagram be refined to reflect a high density residential designation an parcels currently zoned R-3 in the area. b} The zoning and planned use designations far the remainder of the study area should remain as is. in particular, the area on the east side of Willamette Street between 19th and the Civic Stadium property is an appropriate area for medium density residential development. The area on the east side of Willamette between 19th and 18th is appropriately designated and zoned as commercial. l} Should Willamette became two-way, it is recommended that it be designed to provide a sufficient level of service so as to minimize spillover traffic onto alive Street, and the numbered streets north of 18th. 8} In order to address testimony concerned about the ability for bikes to cross Willamette at 15th and for pedestrians to truss at 16th, it is recommended that if Willamette is to be converted to two-way, crossings should be designed and implemented as part of the project. Staff should wank with the bicycle and pedestrian community to design appropriate solutions. Page 8 r ' ~ V W ~ ~ W ~ W Q,~ 4./ a ~ ~ ~ ~ ~ ~ d ~ ~ a ~ a~ ~ ~ ~ N CV N N ~,,, ,.- ,-. Ex~s~ing Zan~ng R1 ~.:. .,..,.., .:f} GCS :.....:. ::::;:;: .,,,.,.. 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E 6 7 E s "s Peak St, r r Id i S E N- South Willamette Subarea Study A-1 Existing Zoning • ~ ~ ] ~ ~ '~ ~ ~ ~ r- r"r w~- Existing land~Use ,,,/ ,,., "" Low Density residential tlw2 units Medium Density 17esidential .. ~' ~' ~ ., General office :::::;:: .::,. `~~_~__ ., r:ii~ commercial ~~ -~~' ~~ ~' Public Land/5ocial Institutions Vacant /////// /////////// /IJ//!//// // ..~..~~. ~...~....... r, ..r. r. r...... //// . s . .. . ............ .•.r....,..r ::. •..r .............a. ,.... r...... ..................... ....... r, r, ....... r..,. •r, r..... aakSt. ,,,,.. ......,...rr... •...... r... r,..,rr....•...... ,.r.,,. r.rr....,... .......rrr...rr.... .... r...r.rrr....r.ii: •.......rr,rr,..... ...,,., ..r.,.,. n .,.,....w :......... .... ........ r• ::::: ...,,r.::.::..... .......... Peak St. alive St. s r/////////r ////!///// /!/r///r//! ////!//!!! !//!//1//// ///!/////! .i,r.r.•. .r. r,.rrr. ..r . f • r...r.• ~... r•.• / / . . { . • •.•• •••~.. i~~ ~ f ~~~~~~~~~ Willamette St, { ,.....,. r. rr• ....r ....... ....... r., t ............... ..........,.......,..r ~ z ........, r.,. .............. .r...rrr...,. :iii ~:: ~. r.,......,r., ~ r ..,.. •r..,.•..,rr ~:i.ir.,....r.,r..rr.. .::: r .,a,,..r ............. . .... s .... r.. r..,.. r.r...... ...... r ............... ::~:: ~ N~ South Willamette Subarea Study A-2 Existing Use 3 ~ ~ ~ d ~ ~ ~ '~ ~ ~ ~ ~ ~ ~ N CV ~ CV tV C~1 4? ~3 .-.. a N ~ } ~ d ~ ~ ~ ~ ~o ~ Olive S~. ., ... ...., . • ~ . • . • ~ ~Nill ame~~e St. .., ... ..,., f • ^ • . . • . . . . . . . . • . . . . • 1 r r r ^ r ^ ' rrrar ^ ' ~ • • • • ••' rerrr• s .... r r r r r ......... rrrraasRrra . • . ^ . ^ .r.r.r.~rr.r.~.r.r.r.r arirRriirRi ............ •.•• r• / r r R r 1 . ^ ....... • ... r .. __________________ oak s~. land Use Recommendations recommendation 1 rrrrir ..... ,':'~`~.'. rrrrirrri r reoommendation 2 ... r . . ~~~:~:~:~:~: ...... ..... recommendat~an 3 ~'•'~' ... ... reoommendation 5 Pearl St. N/ South Willamette Subarea Study A-3 Summary of Land Use Recommendations • } ~ } ~ ~ ~ ~ d ~ ~ ~ Q ~ ~ c a ~ ~ v v ~ ~ ° ~' N N ~ ATTACHMENT B SOUTH wI~.LAMETTE SUBAREA STUDY December 1, ~ 987 Deletions from the text are indicated i n ~ brackets ~ ; additions are u n dPr~ i n~ ~ _ ~REV~sIONs ~ . Recommendation No. 5 ~ To bring existing zoning and use into general compliance with the designations on the Metro Plan Diagram, this study recommends that the west side of Wi l ~ amette be rezoned to R-2Jl o uni is per acre between ~ 9th and 22nd Avenues. The blocks between 22nd and 24th; which include the apartment complex and dental clinic between 24th Avenue and 24th Place, should rernai n zoned R--3. ~ In recognition of the existing mix of l ow~, medium-~, and hi gh~densi ty residential uses and the current zoning on the wes s~ e o ~ ame e e weep venue an ace, ~s s u y recommends that the Metro P~ an ~i a ram be refined to refl ect a hi gh- ens~ ty res~ ent~ al es~ gnatT on on parce s current y zone R- ~ n t e area, ERRATA 1. Correct typographical errors, pages 3 and 4. Z, Insert correct map ,page reference, page 3. PL512 E~HIB~T B Q3 U t~. d' t'V } `~" ~ d ~ N O~~Ve St. ~. E i f . ^ "s . • • 3 . • ! • • .. ..., '... ~i1l~mette St. ...., •.. . ~ . . ... . • • . ...' rrrrrrrr i . . • • r ...'.'.'.'.'. rarrrriri E .......•. rrrrr^ f • • . . ..•....•..• rrrrr ............ rrrrrr ~ • .. .' ............. rrrrr .................. rrrrr^ Oak St. Pearl St. Land U$e ~ecammenda~~ons recommendation ~ rr~rrr rr~rr ..r'r.', rrrrrrrrrr^ i~ecommenda~ion 2 r ^ . • . ^ r . • r • . ~:~:~:~:~:~: ...... ...... ~ecommendatian 3 r • • • • • .., .., ~ecommenda~ion 5 N/ South Willamette Subarea Study A-3 Summary of Land Use Recommendations EXH~B~T C • ~' } ~ d1 ~ ~ • ~ ~ ~ ~¢ ~ ¢ ~ ~ c ~ ~ ~ N N ~ ~ ~ ~ ~ ~ ~ ~