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HomeMy WebLinkAboutItem A: Eugene Water & Electric Board Riverfront Master Plan ECC UGENE ITY OUNCIL AIS GENDA TEM UMMARY Work Session: Eugene Water & Electric Board Riverfront Master Plan Meeting Date: May 15, 2013 Agenda Item Number: A Department: Planning and Development Staff Contact: Gabe Flock www.eugene-or.gov Contact Telephone Number: 541-682-5697 ISSUE STATEMENT This work session will include an overview of Eugene Water & Electric Board’s (EWEB) Riverfront Master Plan process to date, and provide an opportunity for the council to learn more about the land use applications included in the request, in advance of the upcoming public hearing. As a reminder, this is a quasi-judicial process which requires that the initial work session be limited to factual information and questions about the request. The council should avoid prematurely expressing opinions or deliberating on the merits of the proposal in advance of the public hearing, which is scheduled for June 17, 2013. BACKGROUND The Eugene Code and Downtown Plan require the council’s approval of a master plan for the EWEB riverfront site, prior to any redevelopment. In 2007, EWEB and the City entered into a memorandum of understanding (MOU) that directed the development of a master plan for the site. To help accomplish this task, a nine-member community advisory team (CAT) was jointly appointed by the council and EWEB Board of Commissioners to help guide the creation of the EWEB Riverfront Master Plan. The CAT met bi-weekly over the course of two years with the assistance of EWEB staff and their consultants, as well as City staff, in the development of the conceptual master plan. After a series of public meetings, stakeholder interviews, and focus groups intended to solicit a broad cross- section of community input, the conceptual master plan was completed in April 2010, and unanimously approved by the EWEB Board of Commissioners in June, 2010. Since that time, EWEB’s consultant team has prepared a package of proposed land use applications that, if adopted by the council, will ensure the City’s regulations allow the riverfront site to be redeveloped in accordance with the conceptual master plan. This package of land use applications received a unanimous (7:0) recommendation for approval by the Eugene Planning Commission on March 11, 2013, following the initial public hearing and deliberations. The recommendation includes a number of modest refinements to the proposed code which are being incorporated into the draft ordinance for the council’s consideration. S:\CMO\2013 Council Agendas\M130515\S130515A.doc The formal land use applications that will implement the EWEB Riverfront Master Plan, and are recommended for approval by the Planning Commission, are briefly summarized below: Metro Plan Amendment (MA 12-1): amends the Metro Plan diagram to reflect the master plan vision for mixed-use redevelopment; changes land use designation from primarily heavy industrial to mixed use. Refinement Plan Adoption & Related Amendments (RA 12-1): adopts the EWEB Downtown Riverfront Specific Area Plan; also amends the Downtown Plan and Riverfront Park Study to remove obsolete sections and ensure consistency. Code Amendments (CA 12-4): amends the Eugene Code to establish a new (S-DR) Downtown Riverfront Special Area Zone including form-based standards for future redevelopment; also includes related code amendments to integrate the new zoning with existing code sections. Zone Change (Z 12-6): rezones the site from public land and industrial zoning to the new (S- DR) Downtown Riverfront Special Area Zone. Willamette Greenway Permit (WG 12-4): approves a Willamette Greenway Permit for future development that is consistent with the new plan and zone. At the upcoming work session, the focus will be on building an understanding of the conceptual master plan and these regulatory actions that establish the intended framework for redevelopment. EWEB proposes a “hybrid” form-based code which uses a combination of traditional zoning and form-based development standards tailored specifically to the EWEB riverfront site. These tools are similar to those recently applied to Walnut Station including user- friendly graphics, use controls, urban design standards, and design review. The intent is to achieve a balance between certainty and flexibility in the redevelopment process; to support the appropriate enhancement of riverfront habitat; and, to promote a mix of uses that complement existing downtown development and multiple riverfront uses. As staff will cover in greater detail, several key features of the proposal include approximately eight acres of proposed public open space including a riverfront park; a pedestrian-oriented street system; new parcels for mixed-use redevelopment; and, adaptive reuse of existing buildings on the site. These key features are briefly described below: Riverfront Open Space  Expanded open space includes a variety of new amenities, space for recreational activities, and riparian restoration along the river’s edge.  Public amenities will include a new public plaza as well as informal seating areas, a relocated pathway and boardwalk, interpretive sites and overlooks, gentler grades for better access to the river, and native plantings for habitat enhancement.  A Willamette Greenway setback is established to ensure protection of the expanded open space, riparian area and scenic values along the river. S:\CMO\2013 Council Agendas\M130515\S130515A.doc Pedestrian-Friendly Streets  A “Great Loop” reconnects the site to downtown from 5 and 8 avenues. This primary thth riverfront street is a key design feature that incorporates pedestrian-friendly and green infrastructure elements, and sets the framework for the proposed block pattern and riverfront park.  Secondary streets are oriented to help to create pedestrian-friendly view corridors toward the river. These streets provide a convenient and walkable streetscape, and would allow closure of the primary riverfront street for festivals or other public events.  Street trees, planters, green stormwater infrastructure, narrow street widths, and curb extensions at intersections and mid-block crossings are required. On-street parking is also provided to support mixed-use redevelopment potential, create separation for pedestrians, and facilitate traffic calming. Mixed-Use Redevelopment Parcels  New capacity is created for a mix of residential, office, commercial and employment uses. Estimated build-out would create between 250-400 new dwelling units, roughly 22,000- 28,000 square feet of new retail space, up to 14,000 square feet of restaurant use, and 40,000- 315,000 square feet of additional office uses.  Form-based design standards and use controls along key street frontages are intended to ensure an active streetscape, appropriately scaled buildings, and pedestrian-friendly character. Maximum building envelopes, minimum building heights, step-backs for taller buildings, articulation and window transparency requirements, and main entrance orientation are examples of types of the form-based standards that are utilized to achieve the intended result.  “Restaurant Row” establishes a key destination adjacent to the new riverfront park, boardwalk, and public plaza. This location is intended to create a “vibrant, active, people place” that is a focus of urban activity with open seating areas, convenient access to the boardwalk, and views of the river. Adaptive Re-Use of Existing Buildings  The site’s historic character is promoted through code provisions that encourage adaptive- reuse of the existing buildings including the steam plant, operations warehouse, Midgely’s Building and EWEB headquarters. A series of interpretive facilities are also proposed to teach about the history of the site.  Allowance for up to 30 percent expansion of existing buildings, and use of interim surface parking areas (already existing on the site) is intended to encourage cost-effective tenant infill. These expansions are limited so that no encroachment within the Willamette Greenway setback is allowed, and additional building height is limited consistent with the new zoning. An excerpt of the plan is provided as Attachment B for quick reference, which describes these key features in greater detail. The excerpt includes an illustrative plan, framework diagram, and plan policies which articulate the vision for redevelopment and serve as a basis for crafting the form- based code standards. For more information and detail, a complete copy of the master plan, the proposed code, and related materials is available on the City’s website at: http://www.eugene- or.gov/index.aspx?NID=2358. A hardcopy of the full record of materials is available for review in the City Manager’s Office. S:\CMO\2013 Council Agendas\M130515\S130515A.doc Next Steps  A follow up work session is scheduled for June 12, 2013.  A public hearing is scheduled for June 17, 2013.  Following the public hearing, additional work sessions will be held for deliberations and council action. RELATED CITY POLICIES The Eugene Code and Downtown Plan require the City’s approval of master plan for redevelopment of the EWEB riverfront property. The adopted policy reads as follows: A master plan for the EWEB riverfront property must be approved by the City before any redevelopment, land use application, rezoning, Metro Plan or refinement plan diagram amendments are approved for uses not associated with EWEB functions. The master plan shall be evaluated based on the master plan’s consistency with principles 1 through 4 below: (1) Create a “people place” that is active, vibrant, accessible and multi-use. (2) Provide appropriate setbacks, deeper where environmental or habitat issues are more critical, shallower in other areas. (3) Incorporate appropriate building and site design techniques that address environmental concerns. (4) Incorporate an educational aspect, so that the riverfront improvements teach us about our river, our history and our city. The master plan shall be considered using the City’s Type II application procedures, unless the applicant elects to have the master plan reviewed concurrently with a Type III, Type IV or Type V application. EWEB’s proposed land use application package is intended to fulfill this policy and to implement the land use regulations needed to ensure that redevelopment of the site remains consistent with the conceptual master plan. Findings addressing the applicable Statewide Planning Goals and other adopted City policies for this request are included in the applicant’s written statement for the land use application package. COUNCIL OPTIONS This is an informational work session. No action is necessary. CITY MANAGER’S RECOMMENDATION As noted above, this is an informational work session; no action is necessary. SUGGESTED MOTION None. S:\CMO\2013 Council Agendas\M130515\S130515A.doc ATTACHMENTS A.Vicinity Map B.Plan Excerpt (includes illustrative plan and framework diagram, with related text and policies) C.Council Memo FOR MORE INFORMATION Staff Contact: Gabe Flock Telephone: 541/682-5697 Staff E-Mail: gabriel.flock@ci.eugene.or.us S:\CMO\2013 Council Agendas\M130515\S130515A.doc Attachment A: Vicinity Map ´ Caution: This map is based on imprecise source data, subject to change, Legend and for general reference only. Ft Taxlots 0115230460 May 06, 2013 Attachment B: Plan Excerpt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wTISTPITPEGIxXLEXMWEGXMZIZMFVERXEGGIWWMFPIERH :MWMSR7XEXIQIRX QYPXMYWI 8LIZMWMSRJSVXLIVIHIZIPSTQIRXSJ)YKIRIvW(S[RXS[R 4VSZMHIETTVSTVMEXIWIXFEGOWHIITIV[LIVIIRZMVSRQIRXEP 6MZIVJVSRXMWFEWIHYTSRXLIYRHIVWXERHMRKXLEXSYV SVLEFMXEXMWWYIWEVIQSVIGVMXMGEPWLEPPS[IVMRSXLIVEVIEW GSQQYRMX]vWWSGMEPIGSPSKMGEPIGSRSQMGERHWYWXEMREFPI -RGSVTSVEXIETTVSTVMEXIFYMPHMRKERHWMXIHIWMKRXIGLRMUYIW 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Existing Midgley’s Building Alton Baker Park Existing EWEB Headquarters 5th Avenue Existing EWEB Operations Building 6th Avenue Willamette River Existing Steam 7th Avenue Plant EWEB Substation 8th Avenue *-+96)-009786%8-:)40%2 Bioswales / Green Extension 1 Public Boardwalk Native Green Space + Riparian Enhancement 2 Repaired Riparian Zone Restaurant Row w/ Habitat Roofs 3 Open Space / Native Plants Continuous Riverbank Trail 4 Public Streets with Bioswales Millpond Swale / Potential Millrace 5 Bioswale / Possible Millrace 6 At-Grade Railroad Crossing @ 8th Avenue Existing Buildings 7 Public Boardwalk / Plaza New Construction 8 Pollinator Prairie + River Overlook 15 Rowell Brokaw Architects Attachment B: Plan Excerpt *430-'-)7 8LIJSPPS[MRKTSPMGMIWEVXMGYPEXIXLIZMWMSRJSVXLIVIHIZIPSTQIRX SJXLI(S[RXS[R6MZIVJVSRX -QTPIQIRXXLIw+VIEX0SSTxGSRGITXMRXLI);)&6MZIVJVSRX +IRIVEP 1EWXIV4PER[LMGLFYMPHWSRXLIw+VIEX7XVIIXWxGSRGITX 2I[HIZIPSTQIRXWLEPPTVSQSXIXLIZMWMSRSJXLI 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vW(S[RXS[R6MZIVJVSRX &YMPHMRKJSVQWLEPPVIMRJSVGIXLIEGXMZIERHTYFPMGREXYVISJ 9WIXLIVMZIVJVSRXPERHWGETIXSXIEGLEFSYXSYVGSQQYRMX]v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owell Brokaw Architects Attachment B: Plan Excerpt *-+96)*6%1);36/(-%+6%1 Primary Street / Great Street Secondary Streets Pedestrian / Bike Paths Plazas and Pedestrian Gathering Spaces Public Open Space Redevelopment or Adaptive Re-use Site Residential Requirement Restaurant Row Interpretive Site M 17 Rowell Brokaw Architects Attachment C: Council Memo Memorandum Date: May 1, 2013 To: Mayor Piercy and City Council From: Gabe Flock, Senior Planner, 541-682-5697 Subject: EWEB Riverfront Master Plan Process Update This memo is intended to provide council with a brief update regarding the EWEB Riverfront Master Plan process. A work session on this topic is scheduled for May 15 that will provide an th opportunity to share more in depth information and answer questions. The Planning Commission conducted its review of EWEB’s land use application package following a public hearing and three deliberation meetings. Several modifications were made to the package as a result of those deliberations and on March 11, 2013, the Planning Commission voted unanimously (7-0) to recommend the land use application package for approval. The land use application package includes several regulatory actions needed to formally implement EWEB’s Riverfront Master Plan, including a Metro Plan Amendment, Refinement Plan Adoption and Amendments, Code Amendments, a Willamette Greenway Permit, and Zone Change. Several council work sessions and a public hearing will be held before council is asked to act on the land use application package, including: An initial work session is scheduled for May 15, 2013 to discuss the history of the process  to date, the basic elements of the master plan, and the regulatory tools proposed. This meeting will provide an opportunity for councilors to ask questions and request additional information as needed. Another work session is scheduled for June 12, 2013 to follow up with additional  information and questions from council. A public hearing is scheduled for June 17, 2013.   Deliberations will be scheduled as needed following the hearing, in order to finalize Council’s action prior to the August break. Quasi-Judicial Procedures This is a quasi-judicial process which will require that the initial work sessions be limited to factual information and questions about the request. Council should avoid prematurely expressing opinions or deliberating on the merits of the proposal in advance of the public hearing. “Ex-parte contact” should also be avoided to the extent possible. If these contacts do occur you must keep track of them and disclose them on the record before your public hearing to ensure a fair and open public process, i.e., a chance for the public to rebut the substance of such communication. A failure to adequately disclose an ex parte contact or a perception that your statements demonstrate a bias could be a basis for LUBA to invalidate the City’s final decision on the matter. Once the opportunity for public comment is over and until the City’s decision becomes final (including the resolution of any appeals), you must refrain from any ex parte communications because, at that point, the opportunity for public rebuttal has passed. While the law anticipates that you will handle the ex parte disclosures orally, we expect some long lists on this matter and therefore recommend that Councilors prepare a written disclosure, instead. The written disclosure should declare, as an ex parte contact, all of your contacts relating to the substance of EWEB’s proposal (verbal or written) if those contacts occurred outside of the public hearing. This does not include contacts with City staff; this does include site visits and media information. The law does not require you to disclose dates or speakers, so a statement like “I have heard from a number of people that they are concerned about XXXX” is sufficient. The substance is the important part of the disclosure, thus, you cannot just say “I heard a number of times from Jose Smith.” There is no model or magic words; you just want to make sure that the public gets to know all of the information that you have been given. We will attach each Councilor’s written disclosures list to the AIS for the hearing, explicitly incorporate them into the record and ask that each of you reference your statement and state that the contacts lists are the only additional contacts you have had. We are hoping this will save some time for you and help to ensure that all contacts are disclosed. The City Attorney’s Office is happy to review each of your statements before you finalize it. For More Information Please feel free to contact me at 541-682-5697 or at gabriel.flock@ci.eugene.or.us if you have any questions.