HomeMy WebLinkAboutOrdinance No. 20460COUNCIL ORDINANCE NUMBER 20460
COUNCIL BILL NUMBER 5031
AN ORDINANCE CONCERNING THE WALNUT STATION MIXED USE
CENTER; AMENDING THE EUGENE - SPRINGFIELD METROPOLITAN AREA
GENERAL PLAN LAND USE DIAGRAM; ADOPTING THE WALNUT STATION
REFINEMENT PLAN; AMENDING THE FAIRMOUNTIUNIVERSITY OF OREGON
SPECIAL AREA STUDY; AMENDING THE RIVERFRONT PARK STUDY;
REZONING PROPERTY; AMENDING SECTIONS 9.1030, 9.2682, 9.5750
9.6750 9.7007, 9.7055, 9.7205, 9.7230, 9.8010, 9.8030, 9.8680, 9.8865 AND
9.9570 OF THE EUGENE CODE, 1971; RENUMBERING SECTIONS 9.8110 AND
9.8113 OF THAT CODE TO SECTIONS 9.8007 AND 9.8009 RESPECTIVELY;
ADDING SECTIONS 9.3950, 9.3955, 9.3960 9.3965, 9.3970 9.3975, 9.3980
9.8110, 9.8111 9.8112 9.8113, 9.8114 AND 9.9655 TO THAT CODE;
ADOPTING SPECIAL SETBACKS FOR A SEGMENT OF FRANKLIN
BOULEVARD; AND ADOPTING A SEVERABILITY CLAUSE,
ADOPTED: July 12,2010
SIGNED: July 14, 2010
PASSED: 8:0
-3
U*0161049
EFFECTIVE: August 14, 2010
1 .
ORDINANCE NO. 20460
AN ORDINANCE CONCERNING THE WALNUT STATION MIXED USE
CENTER; AMENDING THE EUGENE- SPRINGFIELD METROPOLITAN AREA
GENERAL PLAN LAND USE DIAGRAM; ADOPTING THE WALNUT STATION
REFINEMENT PLAN; AMENDING THE FAIRMOUNTIUNIVERSITY OF
OREGON SPECIAL AREA STUDY; AMENDING THE RIVERFRONT PARK
STUDY; REZONING PROPERTY; AMENDING SECTIONS 9.1030, 9.2582,
9.5750, 9.5750, 9.7007, 9.7055, 9.7205 9.7230, 9.8010, 9, 8030, 9.8680, 9.8855
AND 9.9570 OF THE EUGENE CODE, 1971; RENUMBERING SECTIONS
9.8110 AND 9.8113 OF THAT CODE TO SECTIONS 9.8007 AND 9.8009
RESPECTIVELY; ADDING SECTIONS 9.3950, 9.3955, 9.3960, 9.3965, 9.3970,
9.3975 9.3980 9.811 0, 9.8111, 9.8112, 9.8113, 9.8114 AND 9.9655 TO THAT
CODE; ADOPTING SPECIAL SETBACKS FOR A SEGMENT OF FRANKLIN
BOULEVARD; AND ADOPTING A SEVERABILITY CLAUSE.
THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS:
Section 1 . The Eugene - Springfield Metropolitan Area General Plan (Metro Plan) Land
Use Diagram is amended to remove the current Metro Plan designations from the properties
identified on Exhibit A "Walnut Station Metro Plan Designations and Zoning Table" attached
hereto and to replace those designations with the commercial designation, as reflected on
Exhibit A attached to this Ordinance. The Metro Plan diagram is further amended to add both
the Nodal Development Overlay designation and the Mixed Uses Overlay designation to those
properties as shown on Exhibit B "Walnut Station Metro Plan Diagram Amendment" attached to
this Ordinance.
Section 2 . The Walnut Station Specific Area Plan, a copy of which is attached to this
Ordinance as Exhibit C, is adopted as a refinement of the Eugene - Springfield Metropolitan Area
General Plan.
Section 3 . The Fairmount/University of Oregon Special Area Study, as amended by
Ordinance No. 20312, is further amended as follows:
(a) The following paragraph is added to the end of the "Introduction to the Plan Area"
subsection of Section I ( "Introduction, Overview, and .Goals "):
The, Walnut Station Specific Area Plan adopted in 2010 incorporated some areas that
Ordinance - Page 1 of 14
were originally included in the Fairmount/University of Oregon Special Area Study
boundaries. With that 2010 adoption, the City Council removed the Walnut Station area
from the Fairmount/University of Oregon Special Area Study boundaries. The Walnut
Station area removed from the Fairmount/University of Oregon Special Area Study
boundaries is that area located on the south side of East 15 Avenue north to Franklin
Boulevard and on the west side of Villard Street east to the terminus of East 15 Avenue
and the eastern boundary of the property owned by ODOT (Map 17-03- 33 -31, Tax Lot
1500). In adopting the refinement plan and special area zone for the Walnut Station
area, the City Council removed from this Fairmount/University of Oregon Special Area
Study those policies that were specific to the Walnut Station area. Where those policies
still had importance to the Walnut Station area, they were incorporated into the Walnut
Station Specific Area Plan and/or implemented through the Eugene Code provisions
applicable within the Walnut Station Special Area Zone. The background information and
findings contained in the Fairmount/University of Oregon Special Area Study that pertain
to the Walnut Station area provide important context and history of the planning process
for the neighborhood and, although the Fairmount/University of Oregon Special Area
Study area no longer includes the Walnut Station area, some references to the entire
original study area remain in this Fairmount/University of Oregon Special Area Study.
(b) The following paragraphs are added to the end of "The Planning Process"
subsection of Section I ( "Introduction, Overview and Goals "):
In May 2005, the City of Eugene, in cooperation with the University of Oregon and the
State of Oregon, initiated a planning process for an area along Franklin Boulevard
known as "Walnut Station" which included the area between Franklin Boulevard and
East 15 Avenue that had been studied as part of the Fairmount/University of Oregon
Special Area Study. The first phase of the Walnut Station project focused on developing
a common vision for that study area. The second phase of the Walnut Station project
began in October 2005 and focused on development of a mixed use development plan
(also known as a specific area plan). The Walnut Station Specific Area Plan was
adopted in 2010 and included strategies for the area based on the foundation laid out in
the visioning process which included:
■ Redesign of Franklin Boulevard to support the pedestrian and transit - friendly
mixed use development concept;
■ Improvements to the pedestrian and bicycle circulation systems;
■ Redesign of side streets to improve operations, parking capacity and appearance
of the other streets within the study area;
• Identification of appropriate development patterns and intensities of development
within the area.
With the adoption of the Walnut Station Specific Area Plan, the City Council removed
from the Fairmount/University of Oregon Special Area Study most of the area north of
East 15 Avenue. The Land Use Diagram (Map 5) reflects the Fairmount/University of
Oregon Special Area Study boundaries after the removal of Walnut Station area's
Commercial, Office and Low or Medium Residential areas.
In moving these properties from the Fairmount/University of Oregon Special Area Study
to the Walnut Station Specific Plan and Special Area Zone, careful consideration was
given to the Metro Plan Diagram as refined by the Fairmount/University of Oregon
Ordinance - Page 2 of 14
Special Area Study and to the zoning conditions at that time. As East 15 Avenue acts
as a transition from primarily commercial zoning and uses, special emphasis was placed
on East 15 Avenue as a transition edge. Development standards adopted for the
Walnut Station Special Area zone include a height step -down to three stories along East
15 Avenue, and an increased setback from o to 10' to match residential properties
across the street and design standards were included to provide a residential scale.
Policies relevant to these properties were also included in the Walnut Station Specific
Area Plan.
(c) The following sentence is added to the fourth paragraph under the "Introduction"
subsection of Section II ( "Land Use "):
In 2010, a portion of the area originally included in the Fairmount/University of Oregon
Special Area Study between Franklin Boulevard and East 15 Avenue (the Walnut
Station area) was removed from the boundaries of the Study because that area was
included in a new refinement plan and special area zone.
(d) Policy No. 2 under the "General Policies" subsection of Section II ( "Land Use ") is
amended to provide:
2. With the exception of 1) the "Institutional Area" ( "I" on the Land Use Diagram), and
2) the Limited High Density Residential/ Limited Institutional Area ("LHDR/Ll" on the
Land Use Diagram), non - residential zoning shall not be expanded in the study area.
(e) Policy No. 3 under the "General Policies" subsection of Section 11 ( "Land Use ") is
amended to provide:
3. With the exception of University lands designated as "Institutional" or "Limited High
Density Residential /Limited Institutional ", zone changes to increase residential
density or commercial intensity are not supported by this plan.
(f) Policy No. 1 under "The Dore Residential Area" subsection of Section 11 ( "Land
Use ") is amended to provide:
1. With the exception of 1) the "Institutional Area" ( "I" on the Land Use Diagram); and
2) the Limited High Density Residential/ Limited Institutional Area ("LHDR/Li" on the
Land Use Diagram), non - residential zoning shall not be expanded in the study area.
(g) Policy No. 2 under "The Core Residential Area" subsection of Section II ( "Land
Use ") is amended to provide:
2. With the exception of University lands designated as "Institutional" or "Limited High
Density Residential/Limited Institutional", zone changes to increase residential
density or commercial intensity are not supported by this plan.
(h) Policy Nos. 1 and No. 2 under "The Franklin Boulevard Community Commercial
Strip" subsection of Section 11 ( "Land Use ") and the "Policies" heading under that subsection are
deleted.
M Policy No. 1 under "The 19 and Agate Neighborhood Commercial Development"
subsection of Section II ( "Land Use ") is amended to provide:
Ordinance - Page 3 of. 14
1. With the exception of 1) the "Institutional Area" ( "I" on the Land Use Diagram), and
2) the Limited High Density Residential/ Limited Institutional Area ("LHDR/Li" on the
Land Use Diagram), non - residential zoning shall not be expanded in the study area.
0) Policy Nos. 1 and No. 2 under "The Oregon Department of Transportation Lands"
subsection of Section II ( "Land Use ") and the "Policies" heading under that subsection are
deleted.
(k) The "Land Use Diagram Text" subsection of Section 11 "Land Use" is amended to
delete the "Low- or Medium - Density Residential (UM)" and "Professional /Office (SY headings
and the text under those headings and to revise the text under the "Commercial (C)" heading as
follows:
Commercial (C)
There are two commercial areas within the special study area: a commercial area west
of Villard at East 13 Avenue that is developed with an arena and a Community
Commercial node at 19 Avenue and Agate Street. No further expansion of commercial
zoning shall occur in either area.
( Policy Nos. 1 and No. 3 under the "Traffic Circulation" subsection of Section III
"Transportation and Parking ") are deleted and the remaining policies are renumbered
accordingly.
(m) Policy Nos. 1 and No. 2 under the "Bicycle and Pedestrians" subsection of Section
III ( "Transportation and Parking ") are deleted and the remaining policies are renumbered
accordingly.
(n) Map 3 "Land Use Study Areas," Map 4 "Generalized Existing Land Use" and Map 6
"Land Use Diagram" are revised to remove the walnut Station area from those Maps as shown
on Exhibits D -1, D -2 and D -3, attached to this Ordinance.
(o) The "Summary of Policies" section is deleted in its entirety and removed from the
Table of Contents.
Section 4 . The Riverfront Park Study is amended as follows:
(a) Policy No. 1 under the "Land Use" subsection of Section II ( "Policies ") is amended to
provide:
The City of Eugene shall apply the Special Development District to property under
University ownership except for property included in the boundaries of the Walnut
Station Specific Area Plan boundaries.
M Policy No. 2 under the "Land Use" subsection of Section II ( "Policies ") is amended to
provide:
The City of Eugene shall consider Special District zoning for other properties within the
RiverFront Park Study area only at the request of affected property owners except for
property included in the walnut Station Specific Area Plan boundaries.
Ordinance - Page 4 of 14
Section 5 . The Eugene Zoning Map is amended to remove the current zones from the
properties identified on Exhibit A attached hereto and to replace those zones with the S -WS
Walnut Station Special Area Zone, as reflected on Exhibit A attached to this Ordinance.
A
Section 6. The Eugene Overlay Zone Map is amended to remove the /SR Overlay Zone
from tax lot 17- 03 -33 -32 -04900 as reflected on Exhibit A. All - other currently applicable overlay
zones shall remain in place, as reflected on Exhibit A.
Section 7. Section 9.1 030 of the Eugene Code, 1971, is amended by adding the
following entry in alphabetical order to the Table 9.1030 Special Area Zone listing:
9.1030 Establishment and List of Zones. The zones listed in Table 9.1030 Zones are
established as follows:
Table 9.1030 Zones
Broad Zone Categoa
Zone
Special
S-WS Walnut Station Special Area Zone
Section 8. The Caption and Sections 9.3950, 9.3955, 9.3960, 9.3965, 9.3970, 9.3975
and 9.3980 are added to the Eugene Code, 1 971, as set forth on Exhibit E "S -WS Walnut
Station Special Area Zone," attached to this Ordinance.
Section 9. Subsections (4), (5), (6)(c)2., (7)(b) and (7)(d) of Section 9.5750 of the
Eugene Code, 1971, are amended to provide:
9.5750 Telecommunication Devices-Sitin Requirements and Procedures.
(4) collocation of Antennas on Existing Buildings, Light or Utility Poles, and
Water Towers. In addition to collocation on a transmission tower, an
antenna may be collocated on existing buildings, light or utility poles, and,
water towers.
(a) Permitted Use. Such collocation on a building, light or utility pole, or
water tower, shall be considered an outright permitted use provided that
the antennas and ancillary facilities comply with the standards contained
in EC 9.5750 Telecommunications Devices -SitingRequirements and
Procedures, the color of the. antennas blends in with the existing
structure and surroundings, and one of the following is met:
1. The property is zoned PL, C -2, C -3 C -4 R -4, 1 -1, 1 -2, 1 -3, or S -WS
and the antennas do not exceed the height limitation of the zone;
or
2. The property is zoned AG, R -1, R -2 R -3, C -1, GO, S (except as
Ordinance - Page 5 of 14
provided in 1., above), H, or PRO, and the antennas extend no
more than 18 feet above, and project no more than 2 feet
horizontally away from the existing structure.
(b) Site Review Such collocation on a building, light or utility pole, or water
tower shall be subject to site review approval provided that the antennas
and ancillary facilities comply with the standards contained in EC 9.5756
Telecommunications Devices-Siting Re uirements and Procedures, the
color of the antennas blend in with the existing structure and
surroundings, and:
1. The property is zoned AG, R -1, R -2 R -3 C -1, GO, S (other than
S -WS), H, or PRO, and the antennas extend more than 18 feet
above, or project more than 2 feet horizontally away from the
existing structure.
(c) Conditional Use Permit. In all cases other than those listed in
subparagraphs (a) and (b), such collocation shall require a conditional
use permit. No exceptions to the standards contained in EC 9.5750
Telecommunications Devices-Siting Re uirements and Procedures shall
be permitted except as authorized by subsection (9) of this section. In
no event shall a conditional use permit authorize a tower or antennas to
exceed the height limitation for a zone as established by chapter 9
except as provided for in this section.
(5) Construction of Transmission Tower. Construction of a transmission
tower, or a modification of an existing transmission tower to increase its
height, shall be allowed as follows:
(a) Permitted Use
1. Such construction or modification shall be considered an outright
permitted use in the C -4, 1 -1, 1 -2 and 1 -3 zone.
2. Modification to increase the height of an existing transmission
tower shall be considered an outright permitted use in all other
zones if the city approved an increase in tower height, as part of a
prior land use process authorizing the transmission tower. The
increase in height allowed under this paragraph shall be limited to
the specific height authorized in the prior land use process.
(b) Site Review Such construction shall require site review approval in the
PL, C -2, C -3, and S -WS zones.
(c) conditional Use Permit Such construction shall require a conditional
use permit in the R -1, C -1, S (other than S -WS) and GO zones.
(d) Prohibited Zones and Locations No new transmission tower shall be
permitted in any zones not included in subparagraphs (a) to (c) above,
including the AG, R -2, R -3 R-4 H, NR, and PRO zones; or in the
Willamette Greenway, on Gillespie Butte above the elevation of 450
feet, on the ridgeline as defined in the South Hills Study or on Judkins
Point.
( Application Requirements.
(c) Site Review and Conditional Use Permit Applications. In addition to the
application requirements specified in paragraph (b) above, applications
for site review or conditional use permits also shall include the following
information:
2. Documentation that alternative sites within a radius of at least
2000 feet have been considered and have been determined to be
technologically unfeasible or unavailable. For site reviews,
Ordinance - Page 6 of 14
alternative sites zoned C -4, 1 -1, 1 -2, and 1 -3 must be considered.
For conditional use permits, alternative sites zoned PL, C -2, C -3,
C -4 1 -1, 1-2,1-3 and SMS must be considered.
(7) Standards for Transmission Towers and Antennas. Installation,
construction or modification of all transmission towers and antennas shall
comply with the following standards, unless a variance is obtained pursuant to
the provisions of subsection (9) of this section:
(b) Height Limitation Transmission tower heights shall be governed by this
section except as provided for below. No transmission tower shall
exceed the maximum heights provided below. In no case shall a
variance be granted from the limitations of subparagraphs (1) through
(4) below.
1. In any zones, no transmission tower shall exceed the height
limitations established for buildings and structures in the specified
areas surrounding Skinner Butte contained in EC 9.6715 Height
Limitation Areas of this land use code to protect views to and from
Skinner Butte.
2. In any zone within the area east of Willagillespie Road, south of
Cal Young Road, west of Oakway Road, and north of Southwood
Lane and Country Club Road, no transmission tower shall exceed
75 feet in height to protect views to and from Gillespie Butte.
3. If located within a PL, C -2, C--3 C -4 R -4, 1 -1, 1 -2, 1 -3 or S -WS
zone, the height limitation for that zone shall apply.
4. If located within a C -1, S (other than S-WS) or GO zone, the
maximum height of a transmission tower, including antennas, is
100 feet.
5. If located within an R -1 zone, the maximum height of a
transmission tower, including antennas, is 75 feet, unless a
variance is granted pursuant to the provisions of subsection (9) of
this section. In no event shall a variance be granted to construct.
such a tower in excess of 199 feet.
(d) Setback The following setbacks from adjacent property lines and
adjacent streets shall be required unless a variance is granted pursuant
to the provisions of subsection (9) of this section:
1. If located within a PL, S, C -2 C -3 C -4, 1 -1, 1 -2, 1 -3 or S -WS zone,
no setback from adjacent property lines shall be required beyond
that required by this land use code or the provisions applicable to
the S zone.
2. If located within an R -1, C -1, or GO zone, the transmission tower
shall be set back from adjacent property lines a minimum number
of feet that is equal to the height of the transmission tower.
3. In the R -1, PL, C -1 and GO zones, transmission towers shall be
set back from adjacent public street(s) a minimum number of feet
that is equal to the height of the tower. In all other zones, the
setback from adjacent public streets shall be a minimum of 25
feet.
Section 10 . Subsection (2) of Section 9.6759 of the Eugene code, 1971, is amended by
adding a new subsection (d) to provide:
Ordinance - Page 7 of 14
9.6750 Special Setback Standards.
(2) Special Setback for Streets.
(d) Notwithstanding subsections (a) -(c), at
segment of Franklin Boulevard shown
Walnut Special Area Zone Franklin
Boundaries) are those lines established
20460. (See EC 9.3970(3)(d).)
ove, special setbacks for the
on Map 9.3970(3)(d) (S -WS
Boulevard Special Setback
by Exhibit G to Ordinance No.
Section 11 . Subsection (1) of Section 9.7007 of the Eugene code,. 1971, is amended to
provide:
9.7007 Nei hborhood /A licant Meetin s.
(1) This section applies to the following types of land use applications:
(a) Type 11: 3 -lot partitions, tentative subdivisions, tentative cluster
subdivisions and design reviews;
(b) Type III: Only conditional use permits and tentative planned unit
developments;
(c) Type IV applications that are not city - initiated;
(d) Metro Plan amendments that are not city- initiated.
Section 12. Section 9.7055 of the Eugene code, 1971, is amended by adding the
following entries in alphabetical order to Table 9.7055 to provide:
9.7055 A lications and Review Authorities. Table 9.7055 Applications and Review
Authorities, lists applications and the typical review authorities for the decision and
the appeal of the decision. To accommodate a request for concurrent review, the
city may instead review multiple applications according to the highest applicable
type.
Table 9.7055 Applications and Review Authorities
R = Recommendation, D = Decision Maker, A = Appeal Review Authorit
Application
Type
Planning
Hearings
Historic
Planning
city
Director
official
Review
Commission
Council
Board
Desi n Review
11
D
A
Design Review, Modification
11
D
A
Section 13. Section 9.7205 of the Eugene Code, 1971, is revised by amending the entry
for "conditional Use Permit, Modification" and adding entries for "Design Review" and "Design
Review, Modification" in alphabetical order to Table 9.7205 to provide:
9.7205 Type ll Application Requirements and Criteria Reference. The following
applications are typically reviewed under the Type 11 review process according to the
requirements and criteria set forth for each application as reflected in the beginning
reference column in Table 9.7205. To accommodate a request for concurrent
review, the city may instead review multiple applications according to the highest
Ordinance - Page 8 of 14
applicable type.
Table 9.7205 Type 11 Application Requirements and Criteria
T e II A lications
Beginning Reference
Conditional Use Permit, Modification
EC 9.8007
Design Review
EC 9.8110
Desi n Review, Modification
EC 9.8114
Section 14 . Section 9.7230 of the Eugene Code, 1971, is amended by adding the
following entries in alphabetical order to Table 9.7230 to provide:
9.7230 ; Expiration
(1) The planning director's approval of an application shall expire in 12 months,
18 months, or 36 months from the effective date of approval, depending upon
the type of land use application as specified in Table 9.7230 Expiration of
Type II Application Approvals, or as provided in subsections (2) through (9) of
this section. If an application approval has expired according to any of the
conditions stated in subsections (2) through (9), the original application
approval is revoked and a new application must be filed.
Table 9.7230 Exj#rafion of Type 11 Application Approvals
Application
12 months
18 months
38 months
Design Review
South Willamette Subarea Stud
X
Design Review, Modification
I
X
Section 15 . Sections 9.8110 and 9.8009 of the Eugene Code, 1971, are renumbered to
Sections 9.8007 and 9.8009, respectively, and all references to those sections, including but not
limited to the reference in EC 9.2882, are hereby updated to reflect this renumbering.
Section 16 . EC "Map 9.8010 Adopted Plans" and its legend are amended as shown on
Exhibit F attached hereto and Table 9.8010 in Section 9.8010 of the Eugene Code, 1971, is
amended to provide:
9.8010 List of Adopted Plans The documents listed in the following Table 9.8010
including any adopted amendments, are the currently effective adopted plans that
may be applicable to a particular land use application. The plans and adopted
policies are more particularly set forth beginning at EC 9.9500, and the boundaries
for each are depicted on Map 9.8010 Adopted Plans.
Table 9.8010 List of Adopted Plans
Bethel- Danebo Refinement Plan Phase ll
Riverfront Park Stud
Bethel - Danebo Refinement Plan
South Hills Stud
Comprehensive Stormwater Management Plan J
South Willamette Subarea Stud
Ordinance - Page 9 of 14
Table 9.8010 List of Adopted Plans
Eugene Commercial Lands Study
TransPlan Metro Area Transportation Plan
Eugene Downtown Plan
Walnut Station Specific Area Plan
Eugene - Springfield Metropolitan Area General
Plan Metro Plan
West University Refinement Plan
Fairmount/U of 0 Special Area Study
Westside Neighborhood Plan
Jefferson /Far West Refinement Plan
Whiteaker Plan
Laurel Hill Neighborhood Plan
Willakenzie Area Plan
19 and A ate Special Area Study
Willow Creek Special Area Stud
River Road -Santa Clara Urban Facilities Plan
Resolution No. 3882 Adopting the West 1 l
Commercial Land Use Policy and Refining the
Eugene - Springfield Metropolitan Area General
Plan (Adopted June 13, 1984
Resolution No. 3885 Establishing Areas for the
Application of C-4 Commercial - industrial District
zoning, and Amending Resolution No. 3882
(Adopted on November 13, 1984
Section 17 . Section 9.8039 of the Eugene Code, 1971, is amended by adding a new
subsection (29) to provide:
9.8039 Adjustment Review - ARproval Criteria. The planning director shall approve,
Conditionally approve, or deny an adjustment review application. Approval or
conditional approval shall be based on compliance with the following applicable
criteria.
(29) S-WS Walnut Station Special Area zone Off- Street Parking Spaces
Adjustment. An adjustment allowing a 25 percent reduction in the minimum
required off- street parking spaces pursuant to EC 9.3970(4 )(a), if the applicant
demonstrates that a proposed Transportation Demand Management (TDM)
Program approved by the city contains strategies for reducing vehicle use and
parking demand generated by the development and establishes benchmarks
by which the program's effectiveness will be measured annually.
Section 18 . The following heading and Sections 9.8110, 9.8111, 9.8112, 9.8113, 9.8114
of the Eugene Code, 1971, are added to provide:
9.8110 Design Review - Purpose The design review process is intended to provide an
alternative path for design proposals that respond to the intent of the code and
creatively meet or exceed the specific development standards.
9.8111 ,Design Resew - Applicability EC 9.3980 allows an applicant within the S-WS
Walnut Station Special Area zone to seek approval through the Design Review
process. These applications for review shall be Considered under a Type 11 process,
or concurrently with a related Type III application process. No development permit
shall be issued by the city prior to completion of the design review.
9.8112 Design Review -- Application Re uirements. In addition to the provisions in EC
9.7010 Application Filing, applications for Design Review Shall be subject to the
following requirements:
Ordinance - Page 10 of 14
(1) Unless waived by the planning director, the application shall be prepared by
one or more of the following professionals:
(a) Oregon licensed architect.
(b) Oregon licensed civil engineer.
(c) Oregon licensed landscape architect.
(2) The application shall include a site plan that shows sufficient detail and
supporting narrative information to demonstrate compliance with applicable
criteria. Unless waived by the planning director, the site plan shall be prepared
by an Oregon licensed architect, landscape architect, civil engineer or Oregon
licensed surveyor.
9.8113 Design Review - Approval criteria The decision -maker shall determine whether
the application is in compliance with the Design Review criteria set out in the code
section that authorizes Design Review.
9.8114 Desian A eview -- Modification. Modification of an approved Design Review may
be requested following the Type 11 process. The planning director shall approve the
request if it complies with the following criteria:
(1) The proposed modification is consistent with the conditions of the original
approval.
(2) The proposed modification will result in insignificant changes in the physical
appearance of the development and the impact on surrounding properties.
If the planning director determines that the modification is not consistent with the
above criteria, the proposed modification may not occur until a new Design Review
application is submitted and reviewed based on the Type 11 application procedures.
Nothing in this section shall preclude the applicant from initially submitting the
requested - modification as a new Design Review application.
Section 19 . Subsection (5) of Section 9.8580 of the Eugene code, 1971, is added to
provide:
9.8880 AoRroval Criteria. The planning director shall approve, conditionally approve, or
deny an application for Traffic Impact Analysis Review following a Type 11 process,
or as part of a Type III process when in conjunction with a CUP or PUD. Approval
or conditional approval shall be based on compliance with the following criteria:
(6) In addition to the above criteria, if the development is located within the S -WS
Walnut Station Special Area Zone, any increased traffic the development
would generate on streets within the Fairmount neighborhood to the south of
the Walnut Station Special Area Zone shall be mitigated through the use of
traffic calming strategies or other mechanisms designed to discourage such
traffic.
Section 20 . Subsection (4) of Section 9.8855 of the Eugene Code, 1971, is amended by
adding a new subparagraph (o) and relettering the subsequent subparagraphs to provide:
9.8865 Zone ChanqeApproval criteria. Approval of a zone change application, including
the designation of an overlay zone, shall not be approved unless it meets all of the
following criteria:
(4) The proposed zone change is consistent with the applicable siting
Ordinance - Page 11 of 14
requirements set out for the specific zone in:
(o) EC 9.3955 Walnut Station Special Area Zone Siting
Requirements.
(p) EC 9.4205 /EC East Campus Overlay Zone Siting Requirements.
(q) EC 9.4715 /WP Waterside Protection Overlay one Siting
Requirements.
(r) EC 9.4776 /WQ Water Quality Overlay Zone Siting Requirements (only
for the purposes of adding the overlay zone. See EC 9.4786.).
(s) EC 9.4915 /WR Water Resources Conservation Overlay one Siting
Requirements (only for the purposes of adding the overlay zone. See
EC 9.4960.).
(t) EC 9.4815 /WB Wetland Buffer Overlay Zone Siting Requirements.
(u) An uncodified ordinance establishing a site specific S -H Historic Special
Area Zone,. a copy of which is maintained at the city's planning and
development department.
Section 21 . Subsection (2) of Section 9.9570 of the Eugene Code, 1971, is deleted and
the remaining subsections are renumbered accordingly, and subsections (4) and (6) of EC
9.9570 are amended to provide:
9.9570 Fairmount/U of o SR ecial Area Study Policies.
(3) Traffic Circulation Policies.
(a) The adverse effects of motor vehicle movement shall be mitigated as
much as possible. (Policy 2)
(b) Traffic management techniques shall continue to be used and new
techniques developed to reinforce the idea of a hierarchy of streets in
the plan area. Some streets shall combine their local, collector, or
arterial function with a role as primary pedestrian or bicycle ways. The
use of low - volume, local neighborhood streets for through movements
by truck and heavy construction equipment shall be discouraged.
(Policy 4)
(c) By March, 2005, the City shall initiate a study of Agate Street between
Franklin Boulevard and 19 Avenue. That study, conducted jointly with
the University and the Fairmount Neighborhood Association, shall
identify strategies to improve the function and carrying capacity of Agate
according to the City criteria for its designated street classification. The
City will implement the necessary changes. The University will
participate in those improvements as development occurs and as
required by the City code, to the extent that the University is directly
responsible for the needed improvements. (Policy 8)
(d) The City, with the cooperation of the University and the Fairmount
Neighborhood Association, shall initiate an area -wide traffic calming
study for the streets within the Fairmount/University of Oregon Special
Area Study boundary to determine appropriate mitigation for through -
traffic utilizing neighborhood streets. Such study shall be initiated prior
to December, 2008, subject to availability of funds. In the event that the
City updates the Central Area Transportation Study (CATS) prior to
2008, the City shall fund and initiate an area -wide traffic calming study
Ordinance - Page 12 of 14
as part of the CATS update to determine appropriate mitigation
measures for the subject area. (Policy 7)
(e) If a Traffic Impact Analysis that is required by the City Code projects
that a proposed development will increase traffic on streets within the
single - family neighborhood to the east and south of University -owned
land, the city shall require the applicant to mitigate those impacts
through use of traffic calming strategies or other mechanisms designed
to discourage through traffic. (Policy 8)
(f) With the exception of alleys, vacations of streets within the state -
approved University East Campus boundary should not be permitted,
unless the applicant, at his or her expense, provides to the City a local
street connection study that demonstrates how the proposed street
system remaining after such vacation meets the intent of the Eugene
Code street connectivity provisions and that such vacation will not
increase traffic volumes on local residential streets. (Policy 9)
(5) Bicycle and Pedestrian Policies. Existing and future businesses shall be
encouraged to provide safe and covered bicycle parking for employees and
patrons. (Policy 3) The use of bicycles, mass transit, walking, carpooling, and
other appropriate alternative modes of transportation, especially by employees
working in the plan area, shall be actively encouraged and provided for in
order to reduce automobile dependence and alleviate traffic and parking
problems. (Policy 4)
Section 22 . Section 9.95.55 of the Eugene Code, 1971, is added to provide:
9.9555 Walnut Station Specific Area Plan
(1) As part of an application to develop the lands formerly owned by the
Department of Transportation (so uth of Franklin Boulevard, east of Walnut
Street and north of 15th Avenue), the developer shall demonstrate that
consideration was given to realigning the 15th Avenue bicycle path in the
vicinity of those lands and making it more attractive. (Note: If the bicycle path
is realigned, the City shall require an easement for the path to ensure its
permanence in the future.)
(2) As part of an application to develop a property south of Franklin Boulevard or
a property in the block on the north side of Franklin Boulevard between Moss
Street, Villard Street, and Garden Avenue within the Walnut Station Specific
Area Plan, applicants are encouraged to include access for pedestrians,
bicycles and limited vehicular access consistent with the Transportation
Features map shown as Figure 9.3978(3 )(b) in the Walnut Station Special
Area Zone.
Section 23 . The legal description set forth at Exhibit H is hereby adopted as the
description of the special setback lines that shall be applied to the segment of Franklin
Boulevard shown on Map 9.3970(3)(d) S -WS Walnut Special Area Zone Franklin Boulevard
Special Setback Boundaries.
Ordinance - Page 13 of 14
Section 24 . The Legislative Findings set forth in Exhibit I attached to this Ordinance
serve as support for this ordinance.
Section 25 . If any section, subsection, sentence, clause, phrase or portion of this
Ordinance is for any reason held invalid or unconstitutional by a court of competent jurisdiction,
such portion shall be deemed a separate, distinct and independent provision and such holding
shall not affect the validity of the remaining portions hereof.
Section 26 . The City Recorder, at the request of, or with the consent of the City Attorney,
is authorized to administratively correct any reference errors contained herein, or in other
provisions of the Eugene code, 1971, to the provisions added, amended or repealed herein.
Passed by the City council this
12th day of July, 2010
Approved by the Mayor this
day of July, 2010
; Rek 9 rder
d
May
Ordinance - Page 14 of 14
Exhibit A
Walnut Station Metro Plan Designation and Zoning Table
IMAPLOT
ACRES
CURRENT
ZONING
PROPOSED
ZONING
CURRENT METRO
PLAN DESIGNATION
PROPOSED METRO
PLAN DESIGNATION
Refinement Plan(s)
Changes
1703321400400
0.27548191
C -2
S -WS
C
C/MU/ND
Fairmount /University of
Oregon Special Area
Study:
Remove Walnut Station
area from the
Fairmount /University of
Oregon Special Area
Study land use diagram
and boundary.
Walnut Station Specific
Area Plan:
Adopt new Walnut
Station Specific Area
Plan land use diagram
with Walnut Station
area delineated as
Walnut Station special
area zone.
1703321400700
0.45934515
C -2
S -WS
C
C/MU/ND
1703321401701
0.33947802
C -2
S -WS
C
C/MU/ND
1703332300200
0.34848192
C -2
S -WS
C
C /MU /ND
1703332301500
0.22210934
C -2
S--WS
C
C /MU /ND
1703332301600
0.25826447
C -2
S -WS
C
C /MU /ND
1703333100500
0.29543890
C -2
S -WS
C
C/MU/ND
1703333100700
0.33298546
C -2
5-WS
C
C /MU /ND
1703333101000
2.80867576
PL
S -WS
MDR
C /MU /ND
1703333101100
0.71916499
C -2
S -WS
C
C /MU /ND
1703333101500
1.14759813
PL
S -WS
MDR
C/MU /ND
1703333101600
0.40566907
PL
S -WS
MDR
C /MU /ND
1703333101700
0.18179903
R -1
S -WS
MDR
C/MU/ND
1703333101800
0.17000221
R -1
S -WS
MDR
C/MU /ND
1703333101900
0.17679593
R -1
S -WS
MDR
C/MU /ND
1703333102000
0.09871647
PL
S -WS
MDR
C/MU/ND
1703333200100
0.16533974
C -2
S -WS
C
C/MU/ND
1703333200200
0.10871425
C -2
S -WS
C
C/MU/ND
1703333200300
0.11623707
C -2
S -WS
C
C/MU/ND
1703333200400
0.12375893
C -2
S -WS
C
C/MU/ND
1703333200500
0.13880397
C -2
S -WS
C
C /MU/ND
1703333200501
0.13128253
C -2
S -WS
C
C /MU/ND
1703333200800
0.16889287
C -2
S -WS
C
C /MU /ND
1703333200801
0.16137276
C -2
S -WS
C
C /MU /ND
1703333200802
0.30017511
C -2
S -WS
C
C/MU/ND
1703333200900
0.17641545
C -2
S -WS
C
C /MU /ND
1703333201000
0.18393899
C -2
S -WS
C
C /MU /ND
1703333201100
0.07807915
C -2
S -WS
C
C /MU /ND
1703333201200
0.09716101
C -2
S -WS
C
C /MU /ND
1703333201300
0.12865526
C -2
S -WS
C
C /MU /ND
1703333201400
0.08404805
C -2
S -WS
C
C/MU/ND
1703333201500
0.23028151
C -2
5 -WS
C
C /MU /ND
1703333201600
0.08449951
C -2
S -WS
C
C/MU/ND
1703333201700
0.18714575
C -2
S -WS
C
C/MU/ND
1703333201800
0.18033093
C -2
S -WS
C
C/MU/ND
1703333201900
0.17352441
C -2
5-WS
C
C/MU/ND
1703333202000
0.47969504
C -2
S -WS
C
C/MU/ND
1703333202300
0.14627457
C -2
S -WS
C
C/MU /ND
1703333202400
0.13946196
C -2
S -WS
C
C /MU /ND
1703333202500
0.13265339
C -2
S -WS
C
C /MU /ND
1703333202600
0.17426854
C -2
S -WS
C
C /MU /ND
1703333202700
0.18281635
C -2
S -WS
C
C /MU /ND
1703333202800
4.13709577
C -2
S -WS
C
C /MU /ND
1703333203500
0.96913966
C -2
S -WS
C
C /MU /ND
1703333203800
0.44032091
C -2
S -WS
C
C /MU /ND
1703333204000
0.22014706
C -2
S -WS
C
C /MU /ND
1703333204100
0.70467117
C -2
S -WS
C
C /MU /ND
1703333204500
0.12277884
R -1
S -WS
LDR
C /MU /ND
1703333204700
0.12278364
R -1
S -WS
LDR
C/MU /ND
1703333204800
0.24557815
R -2
S -WS
LDR
C /MU /ND
1703333205000
0.54612144
C -2
S -WS
C
C /MU /ND
1703333205300
0.36093303
C -2
S -WS
C
C /MU /ND
1703333205400
0.09081641
C-2
S -WS
C
C /MU /ND
1703333205500
0.26099596
C -2
5-WS
C
C /MU /ND
1703333205600
0.26103271
C -2
S -WS
C
C /MU /ND
1703333205700
0.24691004
C -2
S -WS
C
C /MU/ND
1703333208400
0.62840473
C -2
S -WS
C
C /MU /ND
1703333208500
0.25310550
C -2
S -WS
C
C/MU/ND
1703333208600
0.33746620
C -2
S -WS
C
C /MU /ND
Exhibit A
1703333208700
1.11748618
C -2
5-WS
C
C /MU /ND
1703333208701
0.45913478
C -2
S -WS
C
C /MU /ND
1703333208800
0.25333245
C -2
S -WS
C
C /MU /ND
1703333208900
0.18944237
C -2
S -WS
C
C /MU /ND
1703333209000
0.18944854
C -2
S -WS
C
C /MU /ND
1703333209100
0.19625690
C -2
S -WS
C
C/MU/ND
1703333209200
0.08622481
C -2
5-WS
C
C /MU /ND
1703333209300
0.56835294
C -2
S -WS
C
C /MU /ND
1703333209301
0.04637343
C -2
S -WS
C
C /MU /ND
1703333209400
0.08765594
C -2
5-WS
C
C /MU /ND
1703333209500
0.28740014
C -2
S -WS
C
C /MU /ND
1703333210100
0.53495274
C -2
S -WS
POS
POS/MU/ND
1703333210501
0.18365328
C -2
S -WS
C
C/MU/ND
1703333204900
0.24559588
C -2 /SR
S -WS
C
C /MU /ND
1703321400300
0.59684548
C -2 /WR
S -WS /WR
C
C /MU /ND
1703321400500
0.81920482
C -2 /W R
S -WS /WR
C
C/MU/ND
1703321400600
0.51376696
C -2 /WR
S -WS /WR
C
C /MU /ND
1703321400900
2.21047524
C -2/WR
S -WS /WR
C
C /MU /ND
1703321401000
0.92071046
C -2 /WR
S -WS /WR
C
C /MU /ND
1703321401200
0.12108258
C -2 /WR
S -WS /WR
C
C /MU /ND
1703321401201
0.47551015
C -2 /WR
S -WS /WR
C
C /MU /ND
1703321401300
0.30488937
C -2 /WR
S -WS /WR
C
C /MU /ND
1703321401700
0.35096931
C -2 /WR
S -WS /WR
C
C /MU /ND
*1703321401800
15.19496099
S -RP /WR
S -WS /WR
C
C /MU /ND
1703321401900
0.34401705
C -2 /WR
S -WS /WR
C
C /MU /ND
*1703321402000
2.29357860
S -RP /WR
S -WS /WR
C
C /MU /ND
1703321402100
0.19617077
S -RP /WR
S -WS /WR
C
C /MU /ND
1703332300301
0.21904626
C -2 /WR
S -WS /WR
C
C /MU /ND
1703332300400
0.63902030
C -2 /WR
S -WS /W R
C
C/MU/ND
1703332300500
0.55682010
C -2 /WR
S -WS /W R
C
C/MU/ND
1703332300600
0.45510295
C -2 /WR
S -WS /WR
C
C /MU /ND
1703332300800
0.98541959
C -2 /WR
S -WS /WR
C
C /MU /ND
1703332300900
0.26686859
C -2/WR
S -WS/WR
C
C /MU /ND
1703332301000
0.80936073
C -2 /WR
S -WS /WR
C
C /MU /ND
1703332301100
1.19375429
C -2 /WR
S -WS /WR
C
C /MU /ND
1703332301200
0.35224992
C -2 /WR
S -WS /WR
C
C /MU /ND
1703332301400
0.49922689
C-2 /WR
S -WS/WR
C
C/MU /ND
1703332301700
0.47122985
C -2 /W R
S -WS /W R
C
C/MU/ND
1703332302000
0.94070355
C -Z /WR
S -WS /WR
C
C /MU /ND
1703332302200
0.40984040
C -2 /WR
S -WS /WR
C
C /MU/ND
1703333100100
4.01642268
1 -3 /W R
S -WS /WR
POS
POS/MU/ND
1703333100600
5.42362529
C-2 /WR
S -WS /WR
C
C /MU /ND
1703333100601
0.51398351
C -2 /WR
S -WS /WR
C
C /MU /ND
1703333210200
0.32218007
C -2/WR
S -WS/WR
C
C /MU /ND
1703333210400
0.42240343
C -2 /WR
S -WS /WR
C
C /MU /ND
1703333210500
0.60835073
C -2/W R
S -WS /W R
C
C/MU/ND
1703333210300
0.31680324
--
C -2 /WR
S -WS ?WR
C
C /MU /ND
* Only a portion of this tax lot is in S -WS
Key:
Metro Plan Designations:
C = Commercial
LDR = Low Density Residential
MDR = Medium Density Residential
POS = Parks and Opens Space
ND = Nodal Development Overlay Area
MU = Mixed Use Area Overlay
Zoning:
WS = Walnut Station Special Area Zone
RP = Riverfront Park Special Area Zone
C -2 = Community Commercial
R -1= Low Density Residential
R -2 = Medium Density Residential
PL = Public Lands
1-3 = Heavy Industrial
/WR = Water Resources Conservation Overlay Zone
/SR : Site Review Overlay Zone
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Exhibit C
Walnut Station Specific Area Plan
July 2010
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Acknowledgements
In May 2005, the City of Eugene, in cooperation with the University of Oregon and the State of
Oregon, initiated a planning process for Walnut Station Mixed Use Center. Since that time, sev-
eral other agencies, consultant project teams, stakeholders and community members have been
added to the team that resulted in this plan. There was significant involvement from the Techni-
cal Advisory Committee and a Stakeholders Group including representatives from the University
of Oregon, The Chamber of Commerce, the Fairmount Neighborhood Association, and the City of
Eugene. The effort of local participants was aided by the work of several professional consultants.
The participation of inter - departmental City of Eugene staff, staff from other agencies, consultant
teams and countless volunteer hours represented by community members was crucial to the suc-
cessful outcome of the project. Project participants included the following organizations, agen-
cies and individuals:
Angelo Planning Group
Stakeholders Group
Matt Haste
John Barofsky
Bayliss
City of Eugene Staff
ff
Tim Campbell
Neil Bjorkland
Tom Connor
Jason Dedrick
Mark Gillem
Tom Erikson (Intern)
Rick Margerum
Lisa Gardner
Jeff Nelson
Terri Harding
Gary Wildish
Robin Hostick
Rick Wright
Rob I nerfeld
Emily Jerome
Kent Kullby
SERA Architects
Tom Larson
Michelle Mark
Allen Lowe
Marcy Mcl nelly
Lydia McKinney (Project Manager)
Tim Smith
Gary McNeel
Steve Ochs
Lane Transit District
Heather O'Donnell
Mary Archer
Ann Siegenthaler
Tom Schwetz
Mike Sullivan
Elizabeth Weigand (Intern)
University of Oregon
Carolyn Weiss
Karen Hyatt
Chris Ramey
Community Members
Greg Rikhoff
AI Cou per
David Evans and Assoicates
David Knowles
Technical Advisory Committee
John Barofsky
Tim Campbell
John Lawless
Jared Mason -Gere
Bruce Mulligan
Susan Smith
Kristen Taylor
Chapter 1- Introduction
Overview
The Walnut Station Specific Area Plan sets a new direction for future development in the walnut
Station area. It focuses on shaping the public realm (generally streets, sidewalks, and open space),
through an integration of land use and transportation planning and infrastructure investments.
The Plan seeks to implement several growth management strategies that call for compatible infill,
higher density living opportunities, and mixed use development within Eugene's Urban Growth
Boundary.
The Plan development process relied heavily on an iterative and varied public participation pro-
cess and brought together property owners, residents, staff, consultants and numerous other
stakeholders to develop a shared vision and a plan to implement the vision. This vision seeks to
transform this area with great potential from its current, primarily automobile oriented state, to a
vibrant, pedestrian friendly mixed use neighborhood. New approaches in both land use and trans-
portation planning have been employed to meet the intent of this project.
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Walnut Station Planning Area
Walnut Station is a transit station at the intersection of walnut Street and Franklin Boulevard, located
along the regional Bus Rapid Transit (BRT) line called EmX. This mass transit corridor connects the
downtowns of Eugene and Springfield and is currently being expanded to connect to RiverBend
Hospital and the Gateway district in Springfield. The study area includes parcels that are generally
within one quarter mile of the Walnut and Agate EmX stations.
Walnut Station Planning Area Boundary
The walnut Station planning area is largely commercial area at the eastern edge of the City of Eu-
gene near Interstate 5, the University of Oregon campus, the Willamette River, and the Fairmount
neighborhood. Factors contributing to the area's selection for establishment as a mixed use
center include its location on EmX, existing development pressures and redevelopment potential,
and proximity to the University of Oregon. The area straddles Franklin Boulevard, an arterial street
that serves as a major gateway to the city of Eugene and the University of Oregon. The well estab-
lished Fairmount neighborhood on the south side of 15th Avenue currently abuts the area with no
transitional zoning. Protection of this neighborhood and provisions for a graceful transition from
the commercial area on the north side of 15th Avenue to the historic character of the Fairmount
neighborhood on the south side of 15t' Avenue was also a significant factor in the designation of
the Walnut Station planning area.
Mixed Use Development Context
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Mixed use development was formerly referred to as "nodal development" in TransPlan; the Trans-
portation System Plan for Eugene and Springfield. In 1995, the TransPlan Land Use Measures Task
Force developed design concepts and strategies to implement a transportation - efficient land use
pattern within the Eugene - Springfield Metro Area. Mixed use development is a key component of
Eugene's strategy for integrating land use and transportation and meeting growth management
objectives adopted by the city council in 1998. The Walnut Station area was among those identi-
fied as a location within which the mixed use development concepts could apply.
Mixed use development promotes community sustainability and incorporates many features of
the "Smart Growth" planning movement. These features include greater pedestrian orientation,
an interconnected street network, accommodation of all modes of travel, a positive relationship
between buildings and streets, more emphasis on building design, and more efficient use of land.
If properly planned and developed, these centers can mature into, high quality neighborhoods
that enjoy a mix of activities, more transportation options, convenient shopping and services, and
urban amenities. Mixed use centers can reduce the reliance on automobile travel and the need
for costly street improvements in outlying areas, slow the expansion of the Urban Growth Bound-
ary (UGB) onto nearby agricultural and forest lands, and provide a greater variety of housing types
w *thin neighborhoods.
The Walnut Station Mixed Use Opportunity
Walnut Station Specific Area Plan Land Use Diagram
To facilitate implementation of this plan and to alleviate the need for property owners to rezone
individual properties at the time of redevelopment, the city initiated the change in zoning for
all the walnut Station area properties to S -WS Walnut Station Special Area Zone at the time this
plan and relevant implementing ordinances were adopted. As shown on the Land Use Diagram,
all land within this plan is designated as S -WS Walnut Station Special Area Zone. if this diagram
conflicts with other refinement plan land use diagrams, the Walnut Station Specific Area Plan
diagram shall control
Walnut Station Specific
Area Plan Land Use Diagram
MInut Station Spedal Area Zone A
M
Relationship to Other Neighborhood Plans
The Walnut Station Specific Area Plan provides the history and background for the planning
processes that occurred from the project initiation in 2005 through the adoption process in 2010.
This specific area plan provides information on how decisions regarding land use and transporta-
tion issues were made and how these land use, building form, and transportation and circulation
standards are to be implemented:
Two other adopted refinement plans cover portions of the Walnut Station Specific Area Plan as
follows:
Fairmount/University of Oregon Special Area Study (1982, Amended 2003). The Fairmount/Uni-
versity of Oregon Special Area Study covers land and contains a number of policies that apply to
the portion of the walnut Station planning area located south of Franklin Boulevard. As part of
the adoption of the walnut Station Specific Area Plan, this portion of land is being removed from
Fairmount/University of Oregon Special Area Study and incorporated into the Walnut Station
Specific Area Plan. The boundary of the Fairmount/University of Oregon Special Area Study will be
amended to exclude the land within the Walnut Station Specific Area Plan, as shown on the follow-
ing diagram of the Fairmount land use diagram:
E 13TH AVE
Fairmount Special Area Study
I
Institutional
C
Commercial
L
Low Density Residential
LM Low or Medium Density Residential
H
High Density Residential
P
Parks /open Space
S
Professional/office
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Area removed; inlcuded in Walnut
Station Specific Area Plan
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The Fairmount Study policies that are relevant to these properties have been incorporated into
the goals and objectives of the walnut Station Specific Area Plan will therefore remain applicable.
Though the portion of the walnut Station Specific Area Plan located south of Franklin Boulevard is
no longer part of the Fairmount /University of Oregon Special Area Study, applicable policies have
been maintained and incorporated into the form based code for the walnut Station Special Area
Zone (S -WS) and within this plan, as described further below.
Riverfront Research Park Study. The Riverfront Research Park Study (RRPS) boundary includes that
portion of the walnut Station planning area north of Franklin Boulevard, though it is applied only
to properties owned by the University of Oregon. The RRPS requires properties under University
ownership to be zoned Riverfront Park Special Area Zone consistent with the RRPS plan, while
allowing, but not requiring, privately held properties to rezone to the Riverfront Park Special Area
Zone.
With the adoption of the walnut Station Specific Area Plan, all lands within the Walnut Station Spe-
cific Area Plan boundary will be regulated by the adopted land use diagram as shown below. The
S -RP Riverfront Park Special Area Zone and related development standards do not apply within
the Walnut Station Mixed Use Center. The policies within the Riverfront Research Park Study will
however remain applicable to all the land to which they currently apply, including those within
the walnut Station Specific Area Plan.
Plan Approach; Goals, Objectives and Policies
The approach to addressing goals, objectives and policies in the walnut Station Specific Area Plan
is a shift from the way these have been addressed in previous plans. Creating a shared vision for
the area was the starting point for the planning process, and a significant amount of time was
dedicated to clarifying what the area would look like. This was done using tools such as a three
day "charrette" process where images of the area were created through computer generated
programs and refined based on feedback received during the charrette. Comments were received
also through subsequent public processes and from Stakeholder Group and Technical Advisory
Committee recommendations. The process for creation of the vision is discussed in more detail in
Chapter 2.
These processes were central to identifying and refining the common goals and objectives for
the area. Key issues derived from the goals and objectives were identified and, to the extent they
were relevant to land use and building form, incorporated into the form based code for the S -WS
Walnut Station Special Area Zone (S -WS). These goals and objectives are therefore applicable to all
development applications submitted for permit review, rather than remaining as policies in a plan
applicable only to land use applications that are required in limited instances before submittal of a
building permit for review.
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Examples include reducing the building height for the entire S -WS Zone to a maximum of seven
stories, and requiring buildings to step down to five stories and then three stories to the Fairmount
neighborhood to the south and. to the Millrace and Willamette River to the north. These building
height stepbacks were crafted largely to address the issue of transitioning from the commercially
Zoned area on the north side of 15x' Avenue to the Fairmount neighborhood on the south side of
this street, and to respond to the potential natural resource area of the Millrace and the Willamette
River to the north.
Further, site and building design standards have been crafted for specific Frontage Districts in the
S -WS Walnut Station Special Area Zone. The Frontage Districts are the designations for the differ-
ent areas in the plan. There are three frontage districts; Franklin Corridor, Urban General, and 15th
AvenueTrans III on Edge. The development standards for the Franklin corridor Frontage District are
specifically designed to create a vibrant pedestrian edge while also recognizing that this is seen
as the most urban, highest intensity area within the Special Area Zone. The building design stan-
dards encourage active commercial uses such as retail space. The landscape standards are crafted
for more urban areas that allow for narrower landscape beds and urban walls for screening pur-
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Walnut Station Section - Facing West
poses, with no minimum landscape requirement. For the Transition Edge 15th Avenue Frontage
District, the site and building standards still allow for active pedestrian uses, but are also scaled
for residential uses and complement the building height standards. Consideration of these areas
as transition areas resulted in standards that require a minimum of 1 5 percent of the site to be
landscaped, and parking lot landscaping beds at a minimum of ten feet in width. Many resulting
design and landscape standards for the Transition Edge exceed those that are required under the
current Eugene Code (EQ.
The S -WS form based code provides a clear and objective path for development to be reviewed
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through the building permit process as long as the S - WS form based code standards are met.
The S--WS form based code also provides a Design Review option as an alternative path. Design
Review is intended for development applications that will achieve an equivalent or higher quality
design than would result from strict adherence to the clear and objective code standards. Design
Review is a Type 11 land use process involving notice to nearby landowners and approval by the
Planning Director based on compliance with the Design Review criteria. These criteria are based
on the goals and objectives for the area, including relevant policies - from the Fairmount /University
of Oregon Special Area Study. These policies have been rewritten and combined in some instanc-
es, the intent being to clarify when and how the criteria are to be implemented.
The following design review approval criteria codified within the Walnut Station Special Area Zone
and are included within this walnut Station Specific Area Plan as adopted plan policies. As such,
they are applicable to relevant Type 111, IV, and V land use applications.
(a) Consistency with design objectives listed at EC 9.3950 Purpose of the S -WS Walnut Station
Special Area Zone.
(b) The project seeking Design Review approval will achieve an equivalent or higher qual-
ity design than would result from strict adherence to the otherwise applicable standards
through:
1. A building orientation, massing, articulation, and facade that contributes positively
to the surrounding urban environment and;
2. An overall site and building design that creates a safe an attractive pedestrian
environment. Design elements for this purpose may include special architectural
features, high quality materials, outdoor seating, pedestrian scaled lighting, promi-
nent entries facing the street, multiple openings or windows, and a significant use
of clear, untinted glass.
(c) Impacts to any adjacent residentially Zoned properties are minimized. Design elements for
this purpose may include treatment of building massing, setbacks, stepbacks, screening
and landscaping.
(d) New buildings shall not increase the shadow cast by more than 20% of the maximum
shadow area that would be cast by a building that complied with applicable height, step -
back, and setback requirements of this chapter. Building shadow shall be measured at 3:00
p.m. on April 21 of any year.
(e) The adverse effects of motor vehicle movement shall be mitigated as much as possible.
Primary vehicular access to the lands north of 15th Avenue and east of walnut Street
should minimize impact on nearby residences and Fairmount Park.
(f) Proposed development shall mitigate the storage effects of motor vehicle parking and
parking impacts on the surrounding neighborhood shall be reasonably mitigated by
minimizing off-street parking. This can be accomplished through the use of shared parking
agreements; car sharing and bus pass programs, and other Transportation Demand Man-
agement Strategies.
In addition, the following criterion is applicable to any development application that requires a
Traffic Impact Analysis review:
(g) If a Traffic Impact Analysis that is required by the City Code projects that a proposed devel-
opment will increase traffic on streets within the single - family neighborhood to the east
and south of University -owned land the City shall require the applicant to mitigate those
impacts through the use of traffic calming strategies or other mechanisms designed to
discourage through traffic.
The third way goals and objectives of the plan are addressed is through the application of adopt-
ed policies that are within this walnut Station Specific Area Plan. Policies are statements that set
a specific course of action that will move the plan towards attainment of the goals and objectives.
Policies are adopted by the City Council as guidance for decision making in the area. City pro-
grams, actions, and decisions will be evaluated on the basis of their ability to implement adopted
policies of this plan as well as other adopted City goals and policies. These policies largely provide
direction to address issues that could not be fully addressed and resolved in the scope of this plan,
such as policies regarding future park land and treatment of the Millrace. The following policies
are applicable to relevant Type III, IV, and V land use applications:
(h) By April 30, 2011, the City shall initiate a process to evaluate the land use category of
"University or College "to better define which uses are permitted outright. In preparing the
report, city staff shall consult with representatives of the Fairmount Neighbors Association
and the University of Oregon. This study shall be completed by October 30, 2012.
(i) The City shall encourage applicants who desire amendments to this plan to involve the col-
laboration of the City and the Fairmount Neighborhood in the review and revision process.
(j) After three years or 50,000 square feet of development (cumulatively) has been approved,
whichever comes first, staff will provide a report to the Planning Commission regarding the
status -of development in the walnut Station mixed use center and the potential impacts
from the reduced parking allowances.
M Prior to April 30, 201 city staff shall provide a report to the Planning Commission which
evaluates the Fairmount Neighbors Event Parking District created pursuant to the Octo-
ber, 2008, Arena Mitigation Agreement ( "Parking District "). The staff report shall evaluate
whether that Parking District is an adequate and appropriate mechanism to protect the
Fairmount neighborhood from potential impacts from reduced parking allowances in the
S -WS Walnut Station Special Area Zone and shall recommend alternative measures if the
evaluation determines the Parking District is inadequate or inappropriate. I n preparing the
report, city staff shall consult with representatives of the Fairmount Neighbors Association
and the University of Oregon.
(I) The city shall update the good Agate Street and Fairmount Neighborhood Traffic Calming
Study ( "Study ") to add mitigation measures that address the impacts I i kely to occur to the
Fairmount neighborhood as a result of development /redevelopment within the S -WS Wal-
nut Station Special Area Zone. City staff evaluation and identification of these mitigation
measures for the Study update shall commence within two years of the date on which the
City Council's adoption of the S -WS Walnut Station Special Area Zone becomes effective.
The final Study update shall be forwarded to the City Council within three years of that
effective date. Mitigation measures included in the updated Study shall be implemented,
along with any other measures deemed necessary by the city, as development and associ-
ated impacts occur, through the city's development and building permit approval process
and/or the city's annual Capital Improvement Program. In preparing the report, city staff
shall consult with representatives of the Fairmount Neighbors Association and the Univer-
sity of Oregon.
(m) When the City engages in detailed development of the multiway boulevard, traffic and
parking spillover impacts on the Fairmount neighborhood shall be evaluated.
{n} The City shall develop strategies to address the need to provide clear and easy access to
businesses along the Franklin Boulevard mult1way boulevard and address any loss of off-
street parking spaces resulting from its construction.
(o) As part of an application to develop the lands formerly owned by the Department of
Transportation (south of Franklin Boulevard, east of Walnut Street and north of 15th Av-
enue), the developer shall demonstrate that consideration was given to realigning the 15th
Avenue bicycle path in the vicinity of those lands and making it more attractive. (Note: if
the bicycle path is realigned, the City shall require an easement for the path to ensure its
permanence in the future.)
(p) As part of an application to develop a property south of Franklin Boulevard or a property in
the block on the north side of Franklin Boulevard between Moss Street, Villard Street, and
Garden Avenue within the Walnut Station Specific Area Plan, applicants are encouraged
to include access for pedestrians, bicycles and limited vehicular access consistent with the
Transportation Features map shown as Figure 9.3978(3 )(b) in the Walnut Station Special
Area Zone.
(q) In prioritizing the need for future park land within the Walnut Station ///Mixed Use Center, the
City should consider the relative density of residential development, in addition to walking
distance to parks, as a factor.
(r) Due to the expected increase in residential density and lack of access to existing neighbor-
hood parks, there is a goal of establishing a new neighborhood park for this area. Staff will
work with landowners to find a suitable site of appropriate size and configuration for a new
neighborhood park on the north side of Franklin Boulevard in the Walnut Station Specific
Area Plan.
(s) Due to the uncertainty surrounding the future of the water in the Millrace, the City should
complete a comprehensive study of the Millrace prior to decisions being made regarding
its use as a park or other amenity, or before regulations related to development along the
millrace are adopted or amended.
Chapter 2 describes the process through which information from the emerging Walnut Station
vision was taken forward and refined into what became the final shared vision for the area. Chap-
ter 3 provides details on how the development patterns and land use concerns were addressed
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through the creation of new zoning and building form regulations. chapter 4 provides informa-
tion on how the emerging vision elements were addressed for the public realm of transportation
and park systems.
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Chapter 2 - Creating the Vision
The vision statement below is aspirational based on the vision of how this area will appear if the
goals, objectives, and policies are implemented. It is based broad input from stakeholders and
property owners as well as information prepared by staff, consultants and direction from the
Eugene Planning Commission. The vision statement embodies the shared values and aspirations
of the community and includes the desired characteristics for the area. This vision set the tone for
development of the Walnut Station Specific Area Plan and the Walnut Station Special Area Zone.
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Walnut Station Vision Statement
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"The walnut Station Center serves as a welcoming gateway to the city and is a vibrant center for
the daily activities of the residents of Eugene's east side. Inhabitants of the area and surrounding
neighborhoods celebrate its important economic and geographic role in the community and its
linkages to downtown, the University of Oregon, the historic Millrace and the Willamette River.
Visitors and residents experience a unique sense of place where new and renovated buildings
blend seamlessly with important natural resources and open spaces. People who live, work and
play in the area enjoy new opportunities for shopping, forging social connections and building
neighborhood identity
Franklin Boulevard is widely recognized as one of Oregon's great streets, providing the retail
services needed by residents of a vibrant neighborhood and an attractive and distinctive travel
corridor that facilitates safe and efficient movement by all modes of transportation. Residents and
11
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"The walnut Station Center serves as a welcoming gateway to the city and is a vibrant center for
the daily activities of the residents of Eugene's east side. Inhabitants of the area and surrounding
neighborhoods celebrate its important economic and geographic role in the community and its
linkages to downtown, the University of Oregon, the historic Millrace and the Willamette River.
Visitors and residents experience a unique sense of place where new and renovated buildings
blend seamlessly with important natural resources and open spaces. People who live, work and
play in the area enjoy new opportunities for shopping, forging social connections and building
neighborhood identity
Franklin Boulevard is widely recognized as one of Oregon's great streets, providing the retail
services needed by residents of a vibrant neighborhood and an attractive and distinctive travel
corridor that facilitates safe and efficient movement by all modes of transportation. Residents and
11
visitors experience a unique and welcoming entrance to the city and the University of Oregon,
arriving by bike, bus, car and foot. The multiway boulevard encourages use by pedestrians and
shoppers by separating through traffic from local access traffic, increasing safety throughout the
corridor and providing a quieter edge as well as parking options on the local access lane. Vibrant,
green foliage in well - designed landscaping, pedestrian scale lighting and attractive, human -- scaled
architecture all blend to create a sense of vitality fused with elements of nature. The buzz of shop-
pers enlivens retail stores on the ground floor of adjacent buildings, with cafes and restaurants
providing a lively neighborhood experience. Residents, students, and visitors sip coffee in street -
side cafes shaded by large street trees, enhancing the sense that this is a gathering place for the
area and a true asset to the community.
Residents living in new housing have transformed the area from a utilitarian commercial strip to
a vibrant neighborhood. New innovative building regulations have ensured that development
has contributed to an attractive mix of building types, heights and facades that create enjoyable
public spaces and connect to the history and character of the area. A diversity of housing types
provide for a rich community both aesthetically and functionally, while residents enjoy working
proximate to their homes. A vibrant mixture of retail stores provides for the daily needs of resi-
dents, as important products and services are only short walk away from their homes and work-
places. People of all ages enjoy strolling through the neighborhood among buildings that look
attractive and feel inviting and friendly. Few even notice the subtle transition between more and
less intensive developments due to conscious choices regarding setbacks and design elements
that a form -based code has facilitated.
Growing numbers of bus riders enjoy the ease and convenience of transit stations and dedicated
bus lanes when traveling to work, buying groceries or eating out. Residents of the area travel
between a series of transit stations that are conveniently located within short walking distance of
their residence or final destination. commuters and other travelers between Eugene and Spring-
field not only move through the corridor by rapid transit bus, but occasionally make a quick stop
to buy essential household items or to have dinner or a drink with friends before continuing
home.
Bicyclists and pedestrians move safely throughout the area in a way that has all but removed the
need for automobile ownership except for longer regional trips. Commuters and recreational
bikers pass by the area on the fully completed South Bank Bike Path. Bike routes throughout the
development provide easy and safe connections to the path. A mid -block connector between
Franklin and 15th Avenue provides a quieter east /west route for pedestrians on the south side of
the development.
The Millrace is a major urban amenity, an important natural resource and a destination for resi --
dentsand tourists alike. Families walk along the public way on the south side of the Millrace
enjoying views of the water while deciding if they should rent a bike or perhaps share an ice cream
cone from a nearby eatery. People in adjacent residences look out over the Millrace from small
patios while considering if they want to barbeque tonight or walk down to the Millrace to their
favorite cafe. Bikes are streaming by on the north bank of the Millrace as part of a long ride along
the south bank of the Willamette River. Riders catch glimpses of the waterway cloaked in native
riparian vegetation that forms an important buffer and supports a diversity of plants and wildlife.
Residents enjoy a variety of outdoor spaces that blend a vibrant urban character with opportuni-
ties for solitude offered by the natural environment. Families with small children enjoy a late af-
ternoon visit to the playground at the neighborhood park along the Millrace while a spirited game
of Ultimate Frisbee finishes up on adjacent athletic fields. Those seeking a taste of nature can
venture by path to the banks of the Willamette River or to Franklin Park, where one can seek the
cool and quiet of a heavily wooded area. Parks and open spaces are visually linked by streets lined
with broad trees and extensive vegetation that also collect and filter stormwater from surrounding
development. These areas are also linked to the larger system of parks in the City by the many bike
and pedestrian path connections available.
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Serving as the eastern gateway to Eugene, the Walnut Station area is a pedestrian- friendly neigh-
borhood rooted in a strong sense of place and offering a tangible sense of community. Its vibrant
character reflects the diversity of residents who live and work in the area and makes it a model for
neighborhoods across Eugene seeking new models for how to grow responsibly while promoting
the values residents have come to cherish:'
Developing the Vision
Developing the plan and imple-
mentation tools to bring the vision
described above to fruition came
about through a creative, collabora-
tive approach with its foundation
based on community involve-
ment. In additional to meeting the
City's acknowledged provisions
for citizen involvement, there were
additional processes that sought
to maintain community involve-
ment and participation throughout
the several years it took to create
this plan. There were a variety of
community involvement activities
and processes throughout various
stages in the project, roughly out-
lined below;
Community Involvement
■ Issue Group meetings with neighborhood groups, property and business owners, and transit
customers, August & September and October 2005.
• Three Public Open Houses (June, September, November) in 2005
• Steering committee created August 2005, with Eugene Planning Commission, the University
of Oregon, Lane Transit District, Oregon Department of Transportation, and the Governor's Of-
fice to provide advisory input on the project through 2008.
• Technical Advisory Committee I (TAQ formed in July 2005, to guide the project and insure
interagency coordination through 2008.
• Stakeholders Group. In 2008, the City brought together a stakeholders group with representa-
tives from the Fairmount Neighborhood Association, the Chamber of commerce, the Universi-
ty of Oregon and the city of Eugene. This group was convened by the Chamber and provided a
forum to discuss issues and to mediate concerns between stakeholders as the plan developed.
This Stakeholders Group was recognized for its collaborative efforts and given an award by
Mayor Kitty Piercy in January 2009.
• Technical Advisory committee 11. A second TAC was created in 2008 with representatives from
each Stakeholder Group, interdepartmental city staff, Land Transit District, and the State of
Oregon. This committee reviewed and edited the form based code.
• Three open Houses events were held between January and April 2009.
• Three -day design charrette in April 2009. This was an interactive and iterative process over the
course of three days where the objective was for stakeholders and citizens to come to consen-
sus regarding the desired urban form for different areas within the Walnut Station Specific Area
Plan.
• Fairmount Neighborhood Association. The Fairmount Neighborhood Association created a
Walnut Station subcommittee which met regularly throughout the process. Members of the
subcommittee were included in the stakeholders group. Staff met with the subcommittee and
the neighborhood association on several occasions. Earlier in the process, the meetings were
13
focused on getting feedback on creating the vision. Subsequent meetings were held to pro-
vide information on the development of the implementation tools and to continue to receive
feedback as the form based code and this Specific Area Plan were developed. This subcom-
mittee spent considerable time reviewing draft materials and providing valuable feedback and
direction to finalize these documents.
In addition to these events, the Eugene Planning Commission held numerous work sessions on
the various components of the code and the plan as it developed, and provided guidance to staff
and the Technical Advisory Committee throughout the process. Project goals and objectives were
consistently identified as being important to achieve implementation of the plan.
Project Goals and Objectives
Meet existing City of Eugene design principles for mixed use development planning and de-
sign including:
■ Illustrate a mixed use strategy of blended neighborhoods organized around a com-
mercial core;
• Illustrate design elements that support pedestrian - friendly environments and en-
courage transit use;
• Provide for one or more transit stops within walking distance of the entire develop-
ment;
• Provide for a mix of land uses that offer a variety of services, activities and destina-
tions;
■ Provide for a range of public spaces, such as parks, public and private open space,
and public
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• Connect the neigh-
borhood to the Wil-
lamette River.
• Create a land use, street and block pattern that fosters a blend of jobs, housing, institutions
and recreational uses that are mutually supportive.
• Identify catalyst sites with the greatest development /redevelopment potential.
• Help existing and future businesses and employment centers thrive and contribute to new
mixed use development.
• Minimize the effect of Franklin Boulevard as a barrier and make Franklin easier to cross.
• Maintain Franklin Boulevard function as primary street serving through traffic.
14
• Make the Millrace a feature of the neighborhood. Illustrate alternative designs that restore the
Millrace as a neighborhood and City amenity.
• Create a network of pedestrian and bicycle paths through the area.
In January 2006, after considerable input from area stakeholders, four alternative development
scenarios were generated for review by the community. These development scenarios included a
base case scenario, and three alternative development scenarios with options for land use, circula-
tion patterns and development intensities. while the original intent was to choose one develop-
ment scenario as a preferred alternative, no one scenario addressed all of the project goals and
objectives, and there were elements identified that needed further study.
This review of alternative development scenarios did result in a number of areas in which there
was agreement, referred to as the "emerging vision" design concepts. These design concepts were
carried forward into the final stage of visioning through a three day design charrette, resulting in
design concepts that were carried forward into the next phase of the project.
Emerging Vision Design Concepts
Development Pattern and Intensity
• The most intensively developed portions of the site will occur around the EmX transit stations at
Agate and Walnut streets.
• Along Franklin at walnut Street Station, the plan will promote high intensity residential and
mixed use with retail frontage in the immediate station area.
• Along Franklin at Agate Street Station, the plan will promote high intensity residential and mixed
use with retail frontage north of Franklin Boulevard. The University of Oregon property on the
south side of Franklin Boulevard will continue to comply with University plans.
• Buildings up to five stories in height would be acceptable for properties along the 15th Street
edge if appropriate design and height setback controls are included within the new develop-
ment codes for the mixed use area. Those codes would regulate building articulation, landscap-
ing, window placement and other building design features affecting the appearance and height
of buildings along the street edge.
• Significant new residential development will be encouraged within the walnut Station area.
• Some level of reconfigured auto - oriented development may continue to occur along Franklin
Boulevard but should be limited to portions of Franklin located between EmX stations and will
be subject to parking location and other design controls.
Street Network and Design
• All streets in the planning area should be designed to promote and stimulate pedestrian activity.
• Franklin Boulevard should be redesigned to support multimodal use and transit - oriented devel-
opment.
• The Franklin Boulevard redesign needs to accommodate long -term traffic growth while maintain-
ing city performance standards for a major arterial level -of- service (LOS Q.
• Franklin Boulevard crossing distances should be reduced to improve pedestrian safety and con-
venience.
• The future redesign of Franklin Boulevard should accommodate a second EmX lane.
• The appearance of walnut Station area streets should be improved with attractive landscaping,
improved sidewalks and appropriately - scaled street trees.
• On- street parking is appropriate in the study area and is seen as providing an effective buffer
between pedestrians and moving traffic.
• As streets are reconstructed throughout the area, they should include facilities for pre - treatment
of stormwater consistent with City stormwater requirements, where feasible.
• Orchard Street should not be extended north of Franklin Boulevard to connect Franklin with
PP
Garden Avenue.
• Traffic calming techniques should be employed on local streets south of 1 5th Avenue to discour-
age cut - through - traffic and traffic speeds.
• Franklin Boulevard has great potential for implementing a "gateway" design signaling its role as
an entrance to the University of Oregon and the City of Eugene.
Bicycle and Pedestrian Circulation
• The South Bank Bike Path should be completed between the Autzen Footbridge and the Knicker-
bocker Bike Bridge.
• A new pedestrian connection will be encouraged within the superblock configuration located
between Franklin Boulevard, 15th Avenue, and Villard and Walnut Streets. This new pedestrian
facility could be built in conjunction with future redevelopment of these blocks. Vehicle access
to parking and truck access to retail stores would be provided separately. The specific alignment
of the future connection is not yet known.
• The Walnut Station plan should acknowledge or address bicycle and pedestrian safety issues on
portions of the riverfront bike path lying between Eugene and Springfield.
Parks and Open Space
• At least one new neighborhood park is desired for the area to support additional residential de-
velopment in the area.
• New physical and visual connections to the Willamette River are highly desired by area residents.
Millrace establishes ped/
Vegetative restoration
bike connectivity between
of Willamette corridor
park and interpretive
for primarily ecological
destinations
values
Establishment of new
environmental park is
both a recreational and
ecological destination,
linked by Millrace
Millrace connectivity to
Mill Pond /Willamette
corridor
"Green streets"
in frastructure
accommodates greater
storm runoff associated
with new development,
while linking river
Identity to _--
development character
t
'Green gateway'
entrance to TOD from
Villard
Green streets treat I
runoff then discharge
into Millrace for
biological cleansing,
ecological benefit
Rump station used
primarby to maintain
consistent water levels
for ecological and
aesthetic benefit
.
l
Conservation of Franklin
Park for natural resource
values: connectivity to
Walnut open spaces via
Millrace
16
Chapter 3 - Implementing the Vision
The shared vision for the Walnut Station Specific Area Plan recognizes the need to integrate land
use and transportation planning, and this can be readily seen through the design of the multiway
boulevard. Land use and building form are regulated differently on private property than within
the public realm. This chapter describes how the changes to land use regulations were deter-
mined. The public realm, which includes transportation and parks infrastructure, are covered in
the following Chapter. while addressed separately, land use and transportation remain integrated
in this plan.
Addressing Develop ent Pattern and Intensities
The visioning process and resulting emerging vision elements made clear that, to a large degree,
the community desired this area to become a thriving, vibrant, pedestrian- friendly mixed use
neighborhood. However, current zoning code requirements do not often result in the type of
development sought through this plan.
Like most local governments in the United States, the current land use code in Eugene is based
on Euclidian zoning which regulates land uses by separating them. Because one of the origi-
nal purposes of zoning was to prevent adjacent incompatible uses, these zoning regulations
are often reactive and focus on what is not allowed. Zoning requirements are usually applied
generically throughout the entire community in a one - size - fits -all manner, without any specific
planning or thought about what the community wants the development character of individual
areas or neighborhoods to be. Although the resulting development may be compatible in terms
of density, it can often be incompatible with the physical context in the surrounding community.
To address these compatibility concerns, additional processes such as Site Review, Conditional
Permit Review, and Planned Unit Development review are required for some uses and develop-
ment applications. While these processes may result in development better suited to a specific
area, the development review process can be timely and costly. Additionally, there may not be
a clear understanding of the type of development or density pattern, and how that will appear
once it is constructed. Further, while the current code allows residential uses in commercial
zones, it can only be built if there is commercial use on the first floor. While the intent has been
to encourage mixed use developments, the requirement that every building have a mix of uses
has caused difficulty with financing some of these projects. Highly prescriptive development
regulations are seen as having a barrier effect on development.
Taking a New Approach - Form Based Codes
Form based codes are type of development regulations that are a growing alternative to conven-
tional zoning laws. They go beyond land use to address not just the physical form of the buildings
but also surrounding streets, blocks, and public spaces in order to protect, create, and revitalize
sustainable communities. These codes place a greater emphasis on the physical character of
development and deemphasize the regulation of land use. Form based codes address the relati-
hip between building facades and the public realm. The public realm is comprised of public open
spaces, such as plazas, squares, and parks; that is, the space created and partially enclosed by the
building facades on either side of the streets. It also includes setback areas as well as the street
right --of -way itself.
Form based codes provide greater predictability about the look and feel of development and offer
developers a clearer understanding of what the community seeks. In return, form based codes
can make it easier for citizens to help create the physical development they want by participating
in the creation of form based code standards, which will more likely lead to their acceptance of
17
proposed development and street designs in their community. Because form based codes de-
emphasize land uses, a mix of uses is easier to achieve.
Form based codes also provide an opportunity to address compatibility issues and transitions
through building design and form, rather than relying on costly and time consuming land use ap-
plication procedures. There has been an increasing concern with the development patterns that
result from the existing land use regulations in place, and this is well illustrated in the southern
portion of the Walnut Station Specific Area Plan.
Form Based Code Applications for Walnut Station
15th Avenue is a local street that forms the southern boundary of the walnut Station Specific Area
plan. The property north of 15I" Avenue is currently designated and zoned almost exclusively for
commercial use. Except for a portion of the lands formerly owned by ODOT and the City owned
park land, the land within the walnut Station Special Area zone was primarily commercially des-
ignated in the Metro Plan. Commercial zoning allows buildings up to 120 feet in height with no
building setback requirements. This is in contrast to the south side of 15I" Avenue which is the
residential edge of the Fairmount Neighborhood. This is a large, well- established residential
neighborhood with strong character and with involved residents and occupants. zoning in this
neighborhood is for single- family residential use except for the parcels fronting East 15x" Avenue
between Orchard and Walnut Streets, which are zoned R -4 High Density Residential. There is a
required to foot setback for all residential zones. Low density residential building heights are
capped at 35 feet. while the block between orchard Street and Villard Street is zoned for high -
density and also has a 120 foot height limit, the residential setback still applies. Maintaining the
residential character on the south side of 15I" Avenue while balancing the need to allow reason-
is
z
j j
s _
I/1
F
I ■ I
Zoning designations for area prior to adoption of Walnut Station Special Area Zone
18
able commercial use on the north side of the street is a significant focus of this plan.
Within the remainder of the walnut Station Specific Area Plan area, the land use pattern is some-
what fragmented on the north side of Franklin Boulevard, with multiple ownerships and many
existing businesses. These include hospitality uses, auto - oriented uses, retail and restaurant uses,
as well as some scattered residential development. On the south side of Franklin Boulevard, larger
portions of property are within single ownership or development control, Between Villard Street
and orchard Street on the south side of Franklin, there is a neighborhood grocery store and phar-
macy (Market of Choice /Hirons). These stores are recognized as a vital component of the existing
and future neighborhood. The University of Oregon owns the remaining southern frontage of
Franklin Boulevard having recently purchased the former automobile dealership (Romania) and
the land previously owned by the State of Oregon and occupied by a Department of Motor Ve-
hicles office. Prior to adoption of this plan, all properties owned by the University of Oregon were
zoned PL Public Land,
The R -4 zoning on the south side of 15th Avenue between Orchard and walnut Streets is a bit of
an anomoly in that there is no transition between the R -4 and the R -1 zones. Further, this is the
only R -4 zoning in an area otherwise zoned for and developmed with single family reisdential
dwellings. There was interest in addressing this zoneing anomoly by recommending that these
parcels be re- designated to medium desnity resiedntial zoning. While the plan boundaries do
not include the R -2 parcels and therefore redesignation as part of this plan is not possible, there
is strong support to redesignate those R - parcels to a more appropriate medium density resi-
dential zoning district.
The form based code approach was used to incorporate the emerging vision and design ele-
ments by developing specific building and site design standards for the different areas within
Walnut Station. This allowed the areas adjacent to the neighborhood and the natural resource
areas to have building and site design standards that were crafted specifically to how these ar-
eas should look and feel, recognizing that their character should be different than that of Frank-
lin Boulevard.
Illustrative Plan
a.s ��;�
1`.';'x.2.. - .: �. �xir j. •J -
1 _
F
E
Illustrative Plan for Walnut Station
Form based codes are based on a vision for an area, and visual tools are used to communicate
this vision. An Illustrative Plan was created to capture a development pattern consistent with
the vision. This is a valuable tool to communicate the look and feel desired for an area.
Franklin Corridor Urban General
Early design iterations portrayed different levels of intensity along the Franklin Corridor, focusing
the highest level of development density at the EmX stations. As the plan progressed, a strong
need was recognized to allow for a large degree of flexibility as to how the area could develop,
and that the market rather than the City regulations should dictate where the appropriate level
of commercial intensity could occur. As such, the entire Franklin Corridor became one frontage
district.
Franklin Boulevard
7 Story Maximum
Franklin Blvd.
Several variations of building height limitations were considered. Some property owners sug-
gested retaining the existing height limit of 120 feet, while some neighbors favored buildings no
more than three or four stories anywhere within the Special Area Zone. In order to determine
the appropriate building height standards, it was necessary to address the specific impacts
that were of concern regarding building height rather than trying to arbitrarily reduce building
heights.
Access to sunlight along Franklin Boulevard was raised as a concern, and some participants
recommended a maximum building height of five stories to ensure the sidewalk on the north
side of Franklin Boulevard would not be in shadow cast from buildings on the south side of the
street. when this was evaluated, it was found that a seven story building height with a 15 foot
stepback above five stories will allow sunlight to illuminate the sidewalk and the entire face of
buildings on the north side of Franklin Boulevard, even on the shortest day of the year.
There was also the consideration of how to incentivize high quality construction, and how to
encourage seven story buildings in the most urban portion of the area to be a minimum of
seven stories in height without an additional review process. The maximum height for wood -
frame building construction in Eugene is five stories. Buildings of five stories or less are typically
constructed with wood frames, and this type of construction is typically is used for apartment
PIs,
buildings. Concrete or steel frame construction must be used for buildings of six stories or more
in Eugene, and concrete and steel frame construction is more typically used for condominiums.
Concrete and steel frame construction buildings typically have longer life spans and are made
of more durable, attractive materials. Allowing for a maximum of seven stories along Franklin
Boulevard will provide an incentive for this type of construction in the Walnut Station core area
and provide for a wider variety of housing types.
In allowing for seven story buildings there is a nexus between the levels of public and private
investment proposed for the area in consideration of the proposed development of the multiway
boulevard. The seven story height limitation is a maximum, not a minimum or required height.
There is no requirement for a minimum building height within the plan boundary.
15 11 - Avenue Millrace Transition Areas
There was agreement that special consideration should be given to the 15th Avenue transition,
and all stakeholders agreed on a three story maximum height and a ten foot minimum setback
for the entire portion of 15th Avenue within the walnut Station Specific Area Plan. This matched
the building form of the residential side of 15 Avenue. Building heights along the millrace are
also a maximum of three stories to allow access to light and air along this natural resource area.
77
0 ;;y1
f
E'. =
21
There was a desire to provide a visual connection from the Fairmount neighborhood to the south
to riparian areas along the Millrace and Willamette River. Studies indicated that the proposed
building heights will not impact existing views from areas of the neighborhood like Judkins point,
which has the best visual access to the river.
Building stepbacks above the third and fifth story help protect views to the river along the public
rights of way to the extent that scenic views of the tree canopy along the river can be preserved
along street corridors. These building stepbacks along these streets also would reduce the risk of
creating a tall looming wall, humanize the scale of the street, particularly for pedestrians, and al-
low for more sunlight on the street and sidewalk.
As properties are developed
and redeveloped in the fu-
ture,, it is likely that there will
be opportunities for pocket
parks and other small public
open space amenities. These
types of spaces are an attri-
bute for urban areas and can
provide recreation space for
neighborhood residents. Such
amenities can be incorporated
into public improvements, or
created in association with pri-
vate development. The code
provides incentives, such as
exceeding the maximum set-
back requirement, for privately
developed public open spaces.
Review processes and alternative Path
The form based code provides clear and objective standards that can be reviewed under the build-
ing permit.process only. There is also an alternative path for development applications that may
not meet the form based criteria, but would still be consistent with the intent and vision for the
area. Because the form based code is based on the community's vision and because the impor-
tant policies and design criteria have been codified in the form based code and other applicable
code sections there is less need to rely on the policies in the Walnut Station Specific Area Plan itself
to address neighborhood and compatibility concerns. Policies are not applied to a development
application unless that development requires a land use application. Recommendations resulting
from this planning process have also codified where they pertain to site design issues and building
form standards, and public street requirements.
As part of the Walnut Station Special Area Zone, and as recommended by stakeholders, the walnut
Station code provisions include an alternative review path called Design Review. This path allows
development applications that meet the intent of the code, but that do not meet all of the clear
and object standards, an alternative means by which the application is reviewed against discre-
tionary design review approval criteria. These criteria are based on the goals and objectives for
the area, including relevant policies from the Fairmount /University of Oregon Special Area Study.
Addressing impacts
Form based codes place a greater emphasis on the physical character of development and
deemphasize the regulation of land use. The design standards that are applied through the
form based code do however regulate uses in the area to a certain degree. For example, the
22
design standards are specifically crafted to incorporate buildings with windows and openings
that support an active pedestrian environment. Buildings are required to be built near the front
property line and parking is located to the side and rear, further enhancing the pedestrian envi-
ronment. These design standards would be very difficult to meet for some uses, such as a typical
big -box retail store. If such a building type were to be allowed within Walnut Station, it would
have to go through the Design Review approval process. Is so doing, the development would
have to be consistent with the Design Review approval criteria. Having design standards for
Walnut Station also allows for some uses, such as gas stations which are commonly prohibited
from mixed use centers, as long as the design standards are met.
The S -WS Walnut Station Special Area Zone allows any type of residential or commercial use to
locate anywhere within the plan boundary. Institutional uses, including those associated with
the University, are also allowed. The result is that uses that are currently allowed are still per-
mitted without development standards that have acted as barriers to mixed use development.
While the original approach to the form based code was to eliminate all requirements for Site
Review and Conditional Use Permit (CUP) applications, the requirement for a Conditional Use
Permit requirement for some uses. There are still significantly fewer land use requirements than
within the current code.
Permitted uses have
remained a concern
for the Fairmount
neighborhood, and
of particular con-
cern is the question
of "University or
College" as a use
category. The Eu-
gene Code allows
"University of Col-
lege" as a permitted
use category in the
C -2 and C -3 zones.
Because the Walnut
Station allows any
commercial or resi-
dential use permit-
ted in the code, it
h
is permitted in the
new form based `
code. The category:A
'- 4 }1i. of University use
S
;
was proposed for F• `,
the )Matthew Knight
Arena, and under 15th Avenue looking east from the University of Oregon
appeal by the neighborhood, the Land Use Board of
Appeals found that because an arena .is listed in the
code as a separate use requiring a CUP, a CUP would be required for the University Arena. This
history has created some tensions in the neighborhood with regards to future uses the Univer-
sity might propose. While the question of University or College use is not specific to the Walnut
Station Special Area Zone, the area adjacent to the University of Oregon has more potential to
be impacted by University development. While it is recognized that question of University or
College use is not specific to the Walnut Station Special Area Zone and is rather an allowance in
the Eugene Code applied to all C -2 and C -3 zones, the area adjacent to the University of Oregon
has more potential to be impacted by University development. As such, the following policy is
adopted:
23
By April 30,, 2011, the City shall initiate a process to evaluate the land use category of
"University or College "to better define which uses are permitted outright. In preparing
the report, city staff shall consult with representatives of the Fairmount Neighbors Asso-
ciation and the University of Oregon. This study shall be completed by October 30, 2012.
The neighborhood is also interested in remaining an active participant in the walnut Station
Specific Area Plan as they have been in the Fairmount/University of Oregon Special Area Study.
Any future amendments to this plan will necessarily involve the neighborhood. However, it
was important to the neighborhood that the following policy from the Fairmount/University of
Oregon Special Area Study be included here. This policy is adopted in this Plan:
The City shall encourage applicants who desire amendments to this plan to involve the
collaboration of the City and the Fairmount Neighborhood in the review and revision
process.
Considerable efforts and analysis went into crafting a form based code that would address con-
cerns as dicsussed herein, but it is recognized that this is a new tool and there has been some
concern about applying a new tool without knowing exactly what the development impacts may
be. The local chapter of the Americal Institute of Architects (AIA -SWO) did a peer -- review of the
form based code by applying the draft code to a number of different types of projects to a variety
of sites within walnut Station and generally found that the code functions well. However, there
will likely be minor tweaks and edits to the code to improve it once it has been in effect for a pe-
riod of time. To ensure that review and amendments, if necessary, will occur, the following policy
is adopted in this plan:
After three years or 50,000 square feet of development (cumulatively) has been ap-
proved, whichever comes first, staff will provide a report to the Planning Commission
regarding the status of development in the Walnut Station mixed use center and the
potential impacts from the reduced parking allowances.
Parking
Parking requirements significantly
impact the way an area builds out.
Appropriate parking requirements
can be one of the most significant
elements in creating walkable
communities. Too much parking
restricts the amount of land that
can be devoted to restaurants, re-
tail spaces, offices, and residences.
Parking facilities are expensive to
construct, impose environmental
costs, contradict objectives for
more livable and walkable com-
munities, and tend to increase
driving and discourage use of
alternative modes. Parking re-
quirements also impact housing
affordability, congestion, air and
water pollution.
Inadequate parking supply also
causes problems including frustrating users and increasing the potential for spillover impacts into
adjacent neighborhoods. For this reason, it is not enough to simply reduce or eliminate parking
requirements without looking closely at the impacts, and creating a program to adequately ad-
24
dress those impacts. The Walnut Station mixed use center has some unique characteristics that
are conducive to a reduction of required parking. The EmX now established in the area means that
fewer people will arrive to the area in a vehicle. The University of Oregon is directly adjacent to the
area, so students and faculty have easy walking access to the area, also reducing the frequency of
single- occupancy vehicles. The new code proposed for the area has focused on facilitating mixed
use development, and this also reduces parking demand since motorists need to park only once
to visit of a number of destinations.
Some unique characteristics in the area impact parking needs. For example, the presence of a
large university and employment center creates a higher than average need for on- street park-
ing. New development in the surrounding area is also anticipated to increase the need for parking
spaces. while it would seem on the surface that increasing the supply of parking spaces would ad-
dress the demand for parking spaces, increasing off street parking requirements tends to increase
reliance of automobiles and therefore encourages additional vehicle trips.
In order to address both the need to reduce parking requirements to achieve the desired urban
form and the potential for negative impacts of spillover parking in the Fairmount neighborhood,
a number of potential solutions were evaluated. The Arena Parking District established as part
of agreement for the Matthew Knight Arena provides a Residential Parking Program for the Fair-
mount neighborhood which regulates parking in that neighborhood to two hours in any given
on- street spot. The city's intent that this Residential Parking Program remains in place, but there
was concern that this program could be discontinued. As such, the following policy is adopted:
Prior to April 30, 2011, city staff shall provide a report to the Planning Commission which
evaluates the Fairmount Neighbors Event Parking District created pursuant to the Octo-
ber, 2008, Arena Mitigation Agreement ( "Parking District "). The staff report shall evaluate
whether that Parking District is an adequate and appropriate mechanism to protect the
Fairmount neighborhood from potential impacts from reduced parking allowances in the
S -WS Walnut Station Special Area Zone and shall recommend alternative measures if the
evaluation determines the Parking District is inadequate or inappropriate. In preparing the
report, city staff shall consult with representatives of the Fairmount Neighbors Association
and the University of Oregon.
25
Chapter 4 -The Public Realm
Circulation Systems and Parks
This chapter describes considerations and recommendations for areas within the Walnut Station
Specific Area Plan that largely fall within the public realm; streets, bicycle and pedestrian paths,
and park, recreation, and open space amenities. As with development pattern and intensity, the
emerging vision had specific recommendations about these public realm components and this
chapter describes how those emerging vision elements have been addressed.
Street Networtk and Design
From the emerging vision process described in Chapter 2, it became clear that changing the na-
ture of the transportation network in the Walnut Station area could be a key impetus for realizing
the desired vision for the area. Franklin Boulevard is a significant focus as it bisects the study area
and plays a major role in influencing the character and development of the area. As currently con-
figured and designed, it is not a pedestrian friendly street to cross, nor does it safely and comfort-
ably accommodate modes of travel other than motor vehicles. The other streets within the plan
boundary; Walnut Street, Villard Street, Orchard Street, and Garden Avenue (including a portion of
Moss Street) were also evaluated in the context of the overall vision, and improvements to these
streets consistent with emerging vision were also recommended.
Franklin Boulevard is a major
arterial that carries more
than 33,000 vehicle trips
per day. Traffic volumes are
projected to be as high as
40,000 to 45,000 vehicles per
day in the year 2025. Frank-
lin Boulevard serves as part
of the initial EmX corridor.
Within the plan area there
are both one lane and two
lane sections. Franklin Bou-
levard also serves as a cor-
ridor for accessing regional
recreational and cultural fa-
cilities including Alton Baker
Park, the regional Willamette
River shared use path system
and Autzen Stadium, all of
which are within walking
distance of the plan area.
However, it can also present
a challenge for accessing these
facilities. In addition to carrying large volumes of traffic through the area, Franklin Boulevard
provides access to many businesses, is the primary surface street and transit connection between
downtown Eugene and downtown Springfield, and serves as a major entryway into Eugene and
the University of Oregon.
Pedestrian and bicycle movements within and across Franklin Boulevard are challenging due to
the high volumes of traffic, lack of bicycle lanes, and substandard sidewalks. The existing edges
26
of the street are not conducive to active retail and other pedestrian friendly uses because there is very little
area for sidewalks and in most places, no separation between the relatively narrow sidewalks and the street.
Furthermore, the gateway potential of Franklin Boulevard is not emphasized in the current configuration.
Designing streets only for rapid movement of cars negatively impacts many other goals for our streets and
communities, especially in consideration of sustainability aspirations.
The transportation realm represents one of the largest collective amounts of publicly owned land in the Wal-
nut Station area. The public input received called for using these lands as part of the overall transportation
and planning solution, rather than to accommodate only one mode of transportation. In order to achieve
the vision for the Walnut Station area, Franklin Boulevard must become more than just a conduit for moving
traffic through the area.
A primary goal of this project is to provide additional, safer paths for pedestrians and bicyclists to move
through the area and to cross Franklin Boulevard safely, while maintaining or improving the functionality of
Franklin Boulevard as a major arterial. Information from Lane Transit District and City Public Works staff indi-
cated that the provision for a second EmX lane was needed to support the regional EmX system. A multiway
boulevard design was chosen for Franklin Boulevard primarily because it creates an environment conducive
to encouraging pedestrian friendly mixed -use development along the street.
The multiway boulevard creates a different context by separating the through traffic from the adjacent land
uses through the construction of planted medians, access lanes and on street parking that serves those land
uses. For the pedestrians who are walking along the sidewalks adjacent to the access lanes, it feels more
they are walking along a main street than a busy arterial. The following photo- simulations show how con-
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