HomeMy WebLinkAboutItem A: EWEB Master Plan
ECC
UGENE ITY OUNCIL
AIS
GENDA TEM UMMARY
Work Session: Eugene Water & Electric Board Riverfront Master Plan
Meeting Date: June 12, 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 provide another opportunity for the council to learn more about Eugene Water
& Electric Board’s (EWEB) Riverfront Master Plan proposal, in advance of the upcoming public
hearing. As a reminder, this is a quasi-judicial process which requires that the 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
At the council’s last work session on this topic, staff provided an overview of the proposal,
including the regulatory actions proposed for implementation of the EWEB Riverfront Master
Plan. As a reminder, the formal land use applications proposed by EWEB to implement the master
plan, 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.
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Staff also responded to a number of questions and comments about the proposal at the work
session. Additional responses and relevant materials are organized by topic and addressed below.
Public Access to, and within the EWEB Riverfront Site
The council asked how this master plan would promote access to the site both as a destination,
and for casual use. The master plan and related code provisions ensure a new public street system
that reconnects the site to downtown from 5 and 8 avenues. This will provide the critical
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connection linking downtown to the river.
The plan envisions this primary riverfront street as a “Great Loop” that provides pedestrian-
friendly, bicycle, vehicular and transit access to the site from downtown. The concept also
includes the ability to close sections of this riverfront street for festivals or other public events,
but otherwise provide a convenient, pleasant streetscape environment for a wide variety of
potential users, whether as residents, retail customers, or park users. The proposed bike path and
boardwalk, adjacent to “Restaurant Row” and the new riverfront park, can accommodate a variety
of users including bike commuters and more casual recreational users.
Transit service was closely considered in the master planning process with the involvement of a
focus group that included Lane Transit District staff, City transportation staff and a variety of
community members with interest in transportation issues. As a result, the primary street has
been designed to ensure that it will accommodate future transit service, but with the realization
that the specific type and location of service will depend on future build-out and a variety of
details that naturally come later in the redevelopment process. Attachment A includes an excerpt
from the master plan that shows the site’s relationship to regional, community and local transit
service including rail, EmX, and the Breeze. It shows existing routes and how bus service could be
routed to the site in the future.
The vision for the EWEB property is to expand the range of opportunities for commercial and
residential development throughout the entire downtown and to create the desired mix of uses
and high quality development within a compact urban core as called for in Envision Eugene. The
proposal is intended to help realize the potential for this site to be a special destination
downtown, where residents, visitors, downtown employees, and students come for activities that
strengthen downtown, reinforce the identity of the community and its ties to the area’s most
significant natural resource, the Willamette River.
Willamette Greenway and Water Resource Protections
There are two primary types of land use regulation that apply to natural resource/water resource
protection on the EWEB Riverfront site:
Willamette River Greenway (Goal 15)--The majority of the EWEB site is within the
Willamette River Greenway Boundary. As such, a Willamette River Greenway permit is
included in the adoption package. This permit and the proposed code include a new
Willamette River Greenway setback to ensure protection of the expanded open space,
riparian area and scenic values along the river.
Water Resource Overlay Zoning (Goal 5)--While the typical setback for the Willamette
River is 100 feet from the top-of-bank, the EWEB site is almost entirely developed up to the
current bike path with either paving or buildings. As such, future development in the
“prior developed areas” is exempt from these setback and use restrictions. EWEB,
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however, is proposing extensive development setbacks, almost two acres more, than are
required by current code.
The Planning Commission reviewed this issue in detail during their deliberations and ultimately
found that the proposal resulted in an overall expansion of the protected and enhanced area along
the river.
Attachment B illustrates the proposed Willamette River Greenway setback, and the extent of areas
that are otherwise exempt from the Water Resource overlay setbacks (currently paved or existing
buildings).
Potential Funding Sources for Public Improvements
Implementing the master plan will require on-going collaboration and leveraging of funds from
multiple sources. There are a variety of public and private funding sources that will likely be
considered. Private sources primarily include developer investment, potentially from multiple
developers. Public sources could include grants from state or federal sources, Riverfront urban
renewal funds and other City-controlled sources, as well as participation from EWEB. As an
example, Public Works staff is coordinating with EWEB to pursue federal grant funding to
reconstruct and realign the section of riverfront path within the master plan area. Additional
options such as the formation of a local improvement district and other public-private
partnerships have also been discussed. Until a development entity and a timeline are secured,
amounts and sources are difficult to estimate.
Options and future decisions regarding financial tools, incentives, and public-private partnerships
will come back to the council for further discussion once the regulatory framework is in place.
Future Park Site/ Riverfront Open Space
The same is true of options that exist for future park ownership and maintenance, which will
depend largely on the outcome of this process to first establish the park location and basic
regulatory framework for redevelopment of the site. In the case of the EWEB property, an existing
Memorandum of Understanding (MOU) identifies the City’s option to declare interest in all or a
part of the site, once the proposed land use application package is adopted and EWEB indicates its
intent to sell the property. A variety of options exist and have yet to be decided in terms of future
ownership and management of the park site.
Based on the level of interest in the proposed riverfront open space, additional details are
provided in Attachment C, including a set of design guidelines and a detailed open space diagram
from the plan. These materials help to show the intended location for various park improvements,
riparian enhancements, native habitat areas, interpretive sites and other park elements including
areas that could be available for community gardens.
The proposal is based upon a “Riverfront Ecological Analysis and Design” report that was prepared
during the master planning process, which includes an analysis and recommendations about the
site’s ecological condition, riparian restoration, and balancing of these opportunities among
economic, social, and environmental concerns. A specific native planting list developed as part of
this analysis is included in the adoption package. These materials help to show the balanced
approach envisioned in the master plan for compact urban development, reconnecting downtown
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to the river, and maximizing natural resource values in context with a variety of policy goals for the
site. (For access to this document, please refer to the materials at: http://www.eugene-
or.gov/index.aspx?NID=2358 beginning on page 630 of the record.)
Sustainability Principles (Triple Bottom Line)
A fundamental element of the master planning process from the beginning was to establish a
vision statement and guiding principles that address the “triple bottom line” of sustainability (see
Attachment D). This vision and the guiding principles were approved by the Community Advisory
Team to help inform the process based on an understanding of the inter-dependence of the
community’s social, economic, and environmental concerns. This framework also recognizes the
unique opportunity to advance these interests and model sustainability principles in a tangible
way for the entire community, through redevelopment of the EWEB riverfront site. As such, the
proposed adoption package is intended as a reflection of that inter-dependence and balance, with
numerous examples throughout the materials that implement sustainability principles.
New Mixed-Use Redevelopment Potential
The adoption package includes a variety of regulatory actions that, as intended, would create a
substantial amount of new capacity for a mix of residential, office, commercial and employment
uses on the site as compared to its current industrial designation and largely vacant character.
This additional capacity can help to meet the needs identified in Envision Eugene for both multi-
family housing and commercial jobs. Additional information was requested at the last work
session about more specific estimates of that new capacity. Based on the applicant’s analysis of
market feasibility and various redevelopment scenarios under the proposed zoning, estimated
build-out would create:
250-400 new dwelling units,
22,000-28,000 square feet of new retail space,
14,000 square feet of restaurant use, and
40,000-315,000 square feet of additional office uses.
Form-Based and Traditional Zoning (“Hybrid”) Code Provisions
Additional information about the difference between form-based elements and traditional zoning
provisions was also requested at the last work session. The proposed special area zone includes
some of both, and is therefore considered a “hybrid” form-based code by integrating form-based
elements with existing, traditional code provisions.
Staff believes that one of the advantages of the form-based approach is its focus on standards that
try to articulate what the City wants to see built, rather than traditional codes which tend to focus
on preventing what the City doesn’t want. A key means for accomplishing this is the focus on
urban design standards. These standards are perhaps the most obvious form-based elements of
the proposed zoning that 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 the form-based standards that have been tailored to
the site in order to achieve the intended result.
One key difference as compared to traditional zoning is the inclusion of user-friendly graphics to
represent the standards and better reflect what is allowed and what is not in terms of building
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form and the public streetscape. Another key difference is that the allowed uses are organized in
broad categories to encourage a more generous mixing of uses (e.g. retail on the ground floor, with
offices and residential units above); in general, form-based codes are much less predicated on the
separation of uses as compared to traditional zoning. In this case, careful consideration was still
given to prohibit certain uses such as heavy industrial or suburban-style residential housing, and
to require minimum residential density above the ground floor along key street frontages.
Public Testimony Overview from Planning Commission Hearing
At the Planning Commission’s initial public hearing held on February 5, 2013, following a
presentation from EWEB’s staff and consultant team, testimony was received from 18 individuals
in support of the request. There were two individuals who had questions or otherwise indicated a
neutral position, and two individuals with testimony in opposition to the request.
Several themes emerged in that testimony including appreciation for extensive public input
opportunities in the master planning process, the balanced and careful consideration of various
stakeholder interests, the vision for compact but sensitive and well-designed mixed-use
redevelopment, and based upon the proposal for a new riverfront park with ample public access,
river-oriented amenities, and enhancement of the riparian area along the river’s edge. Opposing
testimony mainly expressed concern about the perceived shortcomings of the plan’s ecological
analysis and protections along the river’s edge.
RELATED CITY POLICIES
The Eugene Code and Downtown Plan require the City’s approval of a 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 the
community about its river, history and city.
EWEB’s proposed land use application package is intended to fulfill this policy and to implement
the regulations needed to ensure that redevelopment of the site remains consistent with the
conceptual master plan. Findings addressing the applicable approval criteria, including 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.
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COUNCIL OPTIONS
This is an informational work session; no action is necessary at this time.
CITY MANAGER’S RECOMMENDATION
As noted above, this is an informational work session; no action is necessary at this time.
SUGGESTED MOTION
None.
ATTACHMENTS
A.Transit Service Study Materials
B.Willamette Greenway and Water Resource Setbacks
C.Open Space Diagram and Design Guidelines
D.Master Plan Guiding Principles
FOR MORE INFORMATION
Staff Contact: Gabe Flock
Telephone: 541-682-5697
Staff E-Mail: gabriel.flock@ci.eugene.or.us
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50
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51
Rowell Brokaw Architects
EWEB Riverfront Master Plan
Guiding Principles
Before the design phase began, the Community
Advisory Team worked to describe a set of
shared values that elaborated on the four
Riverfront Criteria in the Downtown Plan. The
intent was to give further clarity and direction
to the design team, and to account for the full
context of the project. These shared values are
expressed in seven Guiding Principles that the
CAT approved by consensus in September 2009.
The specific representation of these principles
was developed during the course of the public
design process, but the underlying values were
strong and consistent throughout the project.
Sustainable Urbanism
The redevelopment of the EWEB riverfront
site transforms a vacated utility yard into a
pedestrian- oriented, balanced, green community
Urban design principles that promote livability,
walkability, connections to open space, and
the integration of urban and natural systems
provide the basis for this plan's framework. By
laying the groundwork for a people - oriented,
multi -use redevelopment that meets LEED
standards, this master plan has the potential to
model sustainable urbanism, reduce our reliance
on fossil fuels, and demonstrate Eugene's
commitment to being a sustainable city.
Balance of Uses
This plan includes a diverse mix of public
and private spaces, with a variety of uses
and opportunities layered within each. The
opportunity to generate vitality and variety is the
result of "rich edges' where the public and private
realms overlap. The plan also accommodates
numerous redevelopment and use scenarios.
Multiple scales of redevelopment and building
types are accommodated by the framework; this
creates the opportunity for diversity in building
AIS Attachment D
types, target markets and architectural character.
Through the overlapping of public open space
and private uses like cafes and restaurants,
public amenities offer cultural, educational,
recreational, artistic and community benefits.
Connection
The master plan reconnects the city with the
river, and extends the riverine landscape into
the city. It improves bike and pedestrian access
to the riverfront path system and creates a
dramatic sequence of open spaces. The design
provides terraced, separated paths that safely
accommodate multiple modes of transportation.
A public riverfront is maintained, and view
corridors are created or enhanced. The proposal
makes the downtown riverfront accessible to all
ages and abilities, and gives preference to the
pedestrian and bicyclist while providing adequate
vehicular access as well.
Ecology
The master plan's ecological objectives should
focus on education and habitat enhancement.
New riverfront open space, river -edge
connectivity, and a variety of open space
types are proposed by the design. Green
streets and an integrated stormwater system
slow and cleanse runoff before it enters the
Willamette, and native plant communities are
planned throughout the 27 -acre site. Urban
agriculture and habitat roofs are incorporated
to add diversity to the site's urban ecology. A
70 -page ecological assessment of the design
was completed (see Appendix), and offers key
recommendations that are consistent with the
design proposal. The assessment also includes
specific recommendations for plant species,
habitat design and maintenance to be carried
forward by this plan.
44 ■ Rowell Brokaw Architects I PWL Partnership I WRT / Solomon E.T.C. I Cogito
EWEB Riverfront Master Plan
*
Identity
The riverfront master plan proposes a 9 -acre
Cultural Landscape that teaches about the
many layers of history, ecology, art and industry
imbedded in this site. Multiple interpretive
sites with specific stories to tell are identified
by the plan. The property is recognized as our
shared, downtown riverfront and includes design
guidelines to create a pedestrian- oriented, lively
public realm. Above all, the riverfront plan directs
the development of a place that is accessible and
welcoming to all.
Economics
The master plan proposal was tested for its
ability to contribute to the economic vitality of
Eugene. Sale of riverfront property will generate
a financial return for EWEB to benefit ratepayers,
and redevelopment will contribute to the tax
base and riverfront urban renewal district.
Infrastructure enhancements also contribute
community value in a variety of ways.
Feasibility
Feasibility is often tied to existing conditions,
standard practices, political climate, and
community support for a project. Multiple use
scenarios were tested to access the flexibility
of the design framework, and to ensure that the
proposal would not preclude positive adaptations
and unforeseen opportunities. A preliminary
development program and implementation
options research were completed as part of
the project's development. Extensive public
outreach ensured that the design developed in a
way that was consistent with community desires
and values, and that input to the design was
identifiable and accurately reflected.
Rowell Brokaw Architects I PWL Partnership I WRTI Solomon E.T.C. I Cogito ■ 45
Rowell Brokaw DRAFT
Axehitects September 9, 2009
0
EWEB RIVERFRONT MASTER PLAN
GUIDING PRINCIPLES
The following is a draft, working document that has been reviewed by the
Community Advisory Team (CAT). It is expected that this document will
continue to evolve with additional input from the CAT, EWER Board of
Commissioners and public.
DRAFT VISION STATEMENT:
This Master Plan is based upon the understanding that our community's social,
ecological,, economic and sustainable Concerns are interdependent The
redevelopment of the EWEB riverfront property offers the unique oppodunity to
advance these interests simultaneously for the benef;t of all Eugene, and to
revisior) our downtown riverfront as a place that participates actively and
graciously with the community that surrounds it
DOWNTOWN PLAN RIVERFRONT PRINCIPLES:
1. Create a "pecple 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, SD that our rivwfront improvernents
teach us about our river, our history and our city.
SUSTAINABLE URBANISM
■ Demonstrates Eugene's commitment to sustainability
Applies urbar design principles to promote a pedestrian-oriented, livable
downtown
■ Integrates urban, ecological and architectural considerations
Incorporates "green" building and design principles
■ Increases density near the heart of the city
■ Provides shared infrastructure that advances the potential for sustainable
development (e.g., renewable energy, landscaped stormwater treatment,
water conservation, waste mitigation. accommodation of urban agriculture)
• Creates a place that is socially and economically diverse
BALANCE OF USES
■ Includes a diverse mix of public and private spaces
■ Balances and - integrates the natural and built environments
■ Incorporates a diversity of housing options that bring vitality to the site
■ Contributes to a resurgence of Downtown living opportunities
Rowell Bta kaw Arch Kett s, R. C.
0 ri e Easi. 8 roadwq, Su i te 3 DO fugene, 0opcion 97401 Voice(541)US- 1.4413 Fax (541) 4BS-7344 WWW.F■WLWhr0kAW.r9M
Rowell Brokaw DRAFT7
September 9, 2009
■ Develops public amenities that Offer CUItUFal, educational, recreational.
artistic and social benefits
ECOLOGY
■ Protects and enhances complex river ecology
■ Aligns riparian restoration with river and site hydrology
■ Enhances the wrrimunity's ecologlc;al awareness
■ Protects habitat for aquatic and terrestrial species on and near the site
■ Recogri7es this property as part of the Willamette River watershed
IDENTITY
■ Captures Eugene's unique identity
■ Recognl,79s this place as Fugane's Downtown Riverfront
■ Redevelops a rrulti-use, active, livable community
■ Honors Eugene's industrial history and EWEB's history of providing and
conserving energy and water
• Integrates the layers of Eugene's history imbedded in the site
■ Seeks a distinctive, beautiful aesthetic
■ Creates a welcoming place for all
CONNECTION
■ Connects the river to the city and the city to the river
■ Maintains a public river edge and continuous riverbank trail
■ Seeks collaboration and compatibility molth neighbors
• Creates view corridors to the river
■ Improves access to and from the site for all modes of transportation
• Is pedestrian- and bicycle-criented
Is accessible and safe for everyone
ECONOMICS
• Is economically viable, vibrant and resilient
■ Generates a financial return to EWEB to benefit ratepayers
■ Contributes to economic vitality through taxes and employment
Contributes to community value through infrastructure enhancements
IFF-ASIBILITY
■ Generates political and community support for the redevelopment of the
downtown riverfront
Is flexible to allow for adaptation and unforeseen opportunities
■ Cultivates Iocal capacities and expertise
■ Delivers tangible, immediate benefits for long-term investments
Contributes to the vitality of Eugene
■ Creates a master plan framework that is economically feasible