HomeMy WebLinkAboutItem B: South Willamette Concept Plan Update
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Work Session: South Willamette Concept Plan Update
Meeting Date: June 19, 2013 Agenda Item Number: B
Department: Planning & Development Staff Contact: Patricia Thomas
www.eugene-or.gov Contact Telephone Number: 541-682-5561
ISSUE STATEMENT
This work session is an opportunity to receive an update and discuss the South Willamette
Concept Plan in the context of implementing Envision Eugene.
BACKGROUND
One of the primary goals set forth in the City Manager’s March 2012 Envision Eugene
recommendation is to accommodate all of Eugene’s 20-year multi-family housing and commercial
job needs inside the existing Urban Growth Boundary. Area planning has been identified as a
means of promoting compact urban development along key transit corridors and in core
commercial centers in a way that enhances the livability and unique identity of each area.
The South Willamette Concept Plan began in 2011 as a pilot for the area planning strategy,
encompassing the South Willamette Street area from 23rd to 32nd avenues and from Amazon Park
to the base of College Hill. This vital district is already valued as a place to live, work, shop and
enjoy leisure activities. In addition, according to research conducted by the Envision Eugene
Technical Resource Group, South Willamette is one of four districts city-wide that may be closer to
showing market potential for change over the next 20 years. These characteristics, along with
public support through a partnership with the Friendly Area Neighborhood and Southtown
Business Association, pointed to South Willamette as a good candidate to begin exploring the tools
of area planning.
The draft South Willamette Concept Plan describes a vision for the district that integrates land
use, transportation, public parks and green space. The vision emerged from numerous community
conversations, including over 600 people who actively participated through public workshops,
focus groups, questionnaires and email updates. Based on these conversations, the plan strikes a
balance toward a moderate level of change and intensity that is sensitive to the scale and
character of existing development. Key elements of the vision include:
A well-connected, healthy, and walkable district
Opportunities for more commercial jobs and residential density, including a greater diversity
of housing types
Guidelines for the physical form and scale of commercial and mixed-use development
Concepts for active, successful streets and public realm
Principles for transitions and compatible building design
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The Concept Plan itself is not a regulatory document, but aims to summarize the community’s
intent and inform the many actions required to realize the vision. In keeping with the action-
oriented principles of Envision Eugene, the South Willamette Concept Plan includes a clear
strategy for implementation (see page 54). Actions fall into three main categories:
Regulatory changes such as code and plan amendments
Community investments supporting redevelopment
Public improvements
In addition to many community partners, the Eugene Planning Commission has also played an
active role in developing the plan, including periodic discussions, participation in public events,
and co-hosting a recent open house. On April 15, the Planning Commission unanimously accepted
the concept plan with a list of final recommendations (Attachment C).
Next Steps
In preparation for local adoption of Envision Eugene, staff will begin work with the Planning
Commission to prepare draft code amendments for Council discussion. Code amendments will
likely include a Special Area Plan and a hybrid form-based code for the district based closely on
the South Willamette Concept Plan as well as additional public participation.
Additional coordination with the grant-funded South Willamette Street Improvement Plan will
continue through the summer as a vision for the long-term street-side character as Willamette
Street develops. Council will have future opportunities to hear the result of this work as well as
discuss and provide direction on options.
Finally, the Concept Plan sets forth recommendations for community investments in the South
Willamette district. Staff will continue working with Council on community investments at a
broader scale, for example through the in-progress MUPTE program discussions.
RELATED CITY POLICIES
The South Willamette Concept Plan implements all of the Envision Eugene pillars, with emphasis
on the following pillars and strategies (for a complete list, see Appendix A of the South Willamette
Concept Plan, p. 64):
Envision Eugene Pillars
Provide Housing Affordable to All Income Levels
Plan for a higher proportion of new housing stock to be multi-family…intended to expand
the variety of housing types and prices available.
…programs and actions will be put in place to increase the number of multi-family homes
that are constructed in the downtown, along key transit corridors, and in core commercial
areas.
Expand housing variety and choice by facilitating the building of smaller, clustered and
attached housing
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Plan for Climate Change and Energy Resiliency
Plan for growth so that an increasing proportion of residents live in 20-minute
neighborhoods where residents can meet most of their daily needs near their homes
without the use of an automobile.
Promote Compact Urban Development and Efficient Transportation Options
Facilitate the transformation of downtown, key transit corridors and core commercial
areas as mixed-use neighborhoods that foster active, walkable, community living by
providing a mix of residential, commercial, retail and public uses in proximity to one
another.
Use urban design to integrate a mix of commercial and residential uses, transportation,
parking, parks and open space, and historical and cultural resources.
Make compact urban development easier in the downtown, on key transit corridors and in
core commercial areas.
Protect, Repair and Enhance Neighborhood Livability
Future actions (such as land use code changes or plan amendments) that impact allowable
density in neighborhoods will only be undertaken through a public process (such as area
planning or neighborhood planning) that integrates the compatibility goals of the Infill
Compatibility Standards and/or Opportunity Siting projects.
Implement the Opportunity Siting (OS) goal to facilitate higher density residential
development on sites that are compatible with and have the support of nearby residents.
Provide for Adaptable, Flexible and Collaborative Implementation
Develop a range of implementation tools to realize the community vision of Envision
Eugene. The range of existing and new tools may include:
Design based tools such as area planning, form-based codes, design review and
o
design standards.
Removal of code barriers
o
Capital improvements that increase the value of an area and attract private
o
investment
Partnerships and collaboration with neighbors, public agencies and institutions and
o
private developers,
Financial tools such as tax relief, fee reduction or restructuring, loans and other
o
market interventions.
COUNCIL OPTIONS
This is an informational work session; no action is required at this time.
CITY MANAGER’S RECOMMENDATION
No action is required on this item.
SUGGESTED MOTION
No action is required on this item.
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ATTACHMENTS
A. South Willamette Concept Plan Link to South Willamette Concept Plan, May 2013
A copy for viewing is available at the City Manager’s Office
B. Project Background: www.eugene-or.gov/SWillamette
Includes project history, interim plans and workshop presentations.
See “Community Input” page for links to reports and workshop results.
C. Eugene Planning Commission Recommendation
FOR MORE INFORMATION
Staff Contact: Patricia Thomas, Urban Design Planner
Telephone: 541-682-5561
Staff E-Mail: patricia.thomas@ci.eugene.or.us
Staff Contact: Robin Hostick, Senior Urban Design Planner
Telephone: 541-682-5507
Staff E-Mail: robin.a.hostick@ci.eugene.or.us
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June 7, 2013
South Willamette Concept Plan
2 ■ City of Eugene
South Willamette Concept Plan
TABLE OF CONTENTS
City of Eugene ■ 3
Introduction........................................................................................................ ...............................
4
Overview
Implementing Envision Eugene
Concept Plan Purpose
Role and Use of Concept Plan
How Long is the Plan Valid?
2
Planning Area, �, gory, and -- Conditions .............................................. ...............................
6
Planning Area
History
Current Conditions
3
The Challenge ............................................................................................................... ...............................
16
Planning Area, Approach, and Methodology
Key Challenges and Opportunities
Guiding Principles
4
The Visior ............................................................................................................... .............................22
Key Design Concepts
The Vision Maps:
Illustrative Plan
Connections and Open Space
Places for Business and Living
Height, Stepbacks and New Zones
Active and Retail Frontage
Development Types
District Sections
5
Design Features and Principles ............................................................................ .............................36
Transitions and Compatibility
Streetside Character
Mixed Use
Residential
Building Design Elements
Parks, Plazas, Green Spaces
Parking Strategies
6
Inf n,�,A- A r P?- A -ornes ............................................................................................ .............................52
Distict -Wide
Building and Site Design
Transportation
Open Space
Special Areas
7
Implementation Plan ............................................................................................ .............................54
Plan and Code Amendments
Communitiy Investment Program
Public Improvements
Zoning
Plan Designations
Appendiy........................................................................................................................ ...............................
64
A. Envision Eugene Pillars
B. District Sections
C. Design Principles and Guidelines
D. Street Typologies
E. Plan Development Reports
Project Website: www.eugene - or.gov /SWillamette
City of Eugene ■ 3
South Willamette Concept Plan
ACKNOWLEDGEMENTS
Thank you to 600 Community Members for
staying in touch with the project, including:
Friendly Area Neighbors Board and Members
Opportunity Siting Task Team
SouthTowne Business Association
University of Oregon Architecture Department
Individuals
Anne DeLaney
Andrew Fisher
Susan Heisey
John Lawless
Nancy Ellen Locke
John Rowell
Matt Sprick
Jean Stover
Ann Vaughn
City of Eugene Planning Commissioners
Randall Hledik, Chair
William Randall, Vice -chair
Steven Baker
Jon Belcher
Richard Duncan
Jeffery Mills
John Jaworski
City of Eugene Staff
Kayre Axe
Denny Braud
Carolyn Burke
Rhonda Crocker
Gabriel Flock
Lisa Gardner
Alissa Hansen
Terri Harding
Chris Henry
Robin Hostick, Urban Design
Rob Inerfeld
Amy Janisch
Jennifer Knapp, Design
Nan Laurence
Heather O'Donnell
Doug Terra
Patricia Thomas, Project Manager
Kurt Yeiter
University of Oregon Architecture
and Landscape Architecture Interns
Amanda Asa Sara Robertson
Bennett Hart Katherine Signell
Anna Liu Sam Yerke
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South Willamette Concept Plan
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City of Eugene ■ 5
South Willamette Concept Plan
1. INTRODUCTION
6 ■ City of Eugene
South Willamette Concept Plan
Overview
For decades, the South Willamette commercial
district has attracted residents from nearby and
surrounding neighborhoods to its mix of shops
and services arrayed along and near the busy
Willamette Street corridor. The district also has
evolved with a blend of the essential elements
that fulfill the daily needs of the residents, with
apartments and houses for small and large
households, apartments for seniors, parks, schools
and playgrounds. The district offers services and
shops - from doctors and dentists to groceries
and hardware. The extensive commercial area,
Amazon Park and two public schools serve a
larger portion of the city as well as the nearby
community.
The vision for the district as proposed within the
South Willamette Concept Plan builds on these
essential elements and lays out a plan and
implementation process for the area to become
an even more vibrant, beautiful, diverse and
prosperous version of itself as it evolves over the
coming decades.
The future envisioned in the concept plan is
designed to enhance the area as an attractive
setting for anticipated growth in housing and
employment, and intensification of the district as
a commercial, entertainment and recreational
destination for the Eugene community.
The Concept Plan is built on a foundation of
guiding principles that support the community's
twenty year growth plan, Envision Eugene. The
plan endeavors to implement Envision Eugene
with emphasis on active, compact, livable,
affordable and connected urban development
that enhances existing districts along primary
corridors. The plan embraces the existing
district character and recognizes the often slow
and gradual pace of change. Yet change is
anticipated. With robust and interactive public
involvement throughout the creation of the South
Willamette vision, the concept plan allows for
flexible and gradual redevelopment of the district
to one with inviting public spaces that support
walking along attractive streetscapes with shops
and houses of all types framing the community
activity.
City of Eugene ■ 7
South Willamette Concept Plan
1. INTRODUCTION
Implementing Envision Eugene
In 2010 the Eugene community embarked on a
major effort to plan for the next 20 years of growth
and change. The emerging vision, titled "Envision
Eugene: A Community Vision for 2032," included
a set of broad community goals (called "pillars ")
and accompanying strategies to achieve the
balanced vision set forth in the document.
To accommodate an estimated 34,000 new
residents over the next 20 years, several strategies,
including area planning, are central to Envision
Eugene's emphasis on compact development in
the city's core commercial areas and along key
transit corridors.
To meet this goal, Eugene will need to find a way
to accommodate about 1600 units of multi - family
housing and several hundred jobs in and around
the core commercial areas and along key transit
corridors, above and beyond what the market is
expected to provide. A central purpose of area
planning is to determine how this can play out
in specific areas of town - in this case the South
Willamette district -while still achieving goals for
livability, economic vitality, and sustainability.
The values of Envision Eugene are captured in
seven "pillars." The pillars foster a balanced
approach to future growth that supports a broad
range of community goals, including a strong
rationale for planning in South Willamette and
other areas. The South Willamette Concept Plan
addresses many strategies within each of the
Envision Eugene pillars.
See Appendix A for a description of how the
South Willamette Concept Plan helps meet
the goals of Envision Eugene, the city's twenty
year plan for accommodating growth.
Concept Plan Purpose
The South Willamette Concept Plan is primarily
a physical plan, using the tools of design to
articulate a future look, feel and structure of a
specific part of Eugene. This includes a holistic
study of land use patterns, building form, street
character, and a variety of public spaces and
natural areas, and setting forth a clear, illustrated
vision for how each of these should contribute to
a livable, thriving district over time.
The overall purpose of the area planning pilot
project in the South Willamette district can be
summarized as follows:
• Engage the community in discussion of
balancing growth and livability in a specific
area of town
• Create a compelling and actionable vision for
the South Willamette district
• Identify priority areas and criteria for proactive
community investment
• Implement the Visioning Path of Opportunity
Siting to find good places for urban housing.
• Catalog and prioritize infrastructure needs
• Build a solid planning foundation to support
grant applications and other revenue
• Establish best practices, or a template, for
area planning in other locations
• Demonstrate the community's commitment to
compact growth
The South Willamette Concept Plan is intended
to result in tangible actions, for example
code changes and public improvements. In
addition, however, the area planning strategy
acknowledges that a significant market gap
will continue to inhibit needed redevelopment.
Additional actions are needed, including
community investment and partnerships with
certain kinds of redevelopment projects. Without
these efforts, the community will need to find
another way to accommodate future growth, for
example through expansion of the urban growth
boundary.
8 ■ City of Eugene
South Willamette Concept Plan
Envision Eugene Pillars
• Provide ample econompic opportunities for
all community members
• Promote compact urban development and
efficient transportation options
• Protect, repair and enhance neighborhood
livability
• Provide housing affordable to all income
levels
• Plan for climate change and energy resiliency
• Provide for adaptable, flexible, and
collaborative implementation
• Protect, restore, and enhance natural
resources
The map below represents the Envision Eugene
Community Vision to accommodate growth in
Eugene over the next twenty years. It illustrates that
all multiple family housing and commercial uses will
be accommodated within the existing urban growth
boundary in places like the South Willamette district
which is along one of the highlighted primary transit
corridors and in core commercial centers.
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Envision Eugene Community Vision for 2032
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March 14, 2012
City of Eugene
Planning and Development Department
Envision Eugene Recommendation March 2012
City of Eugene ■ 9
E ugen & - "
1
South Willamette Concept Plan
1. INTRODUCTION
Role and Use of Concept Plan
What the Plan Does
First and foremost, the plan combines the ideas of
hundreds of residents into a clear and illustrated
vision for the future of the South Willamette area.
It translates community values into a future,
physical form. However, the term "concept plan"
is intended to reinforce the fact that this is not
the final implementation tool, but a road map to
action.
The South Willamette Concept Plan captures the
intent of community engagement as specifically
as possible to provide clear direction for work
needed to realize the vision.
In addition an extensive list of public
improvements can be found in the
Implementation Plan, Section 7. This list includes,
for example, significant upgrades to Willamette
Street.
What the Plan Doesn't Do
During the planning process, a variety of
questions and concerns arose regarding how the
plan might affect future residents. To address
these concerns, it was helpful to explain that the
plan - including the actions listed above - does
not require anyone, whether property owners,
business owners, or renters living in the district, to
move or sell their property. The plan also does
not require anyone to redevelop their property,
nor does it guarantee that any property will ever
be redeveloped. These decisions are all up to
individuals owning property in the district, based
solely on their needs and goals.
Guiding Change
Change occurs in every community over time,
whether it is planned for or not. The factors
driving change are complex and reach well
beyond the scope of any plan. The South
Willamette Concept Plan works by setting up an
inspiring framework for how that future change
should look and function, and to take positive
action in moving toward this best outcome.
Ultimately, most change within the district will be
driven by market forces and individual enterprise.
Based on recent analysis of Eugene's market,
changes in the South Willamette area are
expected to occur slowly and incrementally as
the market begins to support a wider range of
options for property owners.
South Willamette Street Improvement Plan
South Willamette Street, the central spine of the
district, presents major obstacles and opportunities
for implementing the vision in the Concept Plan.
The South Willamette Street Improvement Plan
is a project, funded by a grant from the Oregon
Department of Transportation, to work with the
community to develop a concept for better
access by all travel modes, walking, biking, riding
a bus or driving through the district. The intent is
to increase safety while allowing all users to move
about and through the district more comfortably
and safely. The Improvement Plan is a short term
project to be implemented by 2018, while the
Concept Plan strives to set out a long term vision
for the street that creates the adjacent character
and amenities that support a walkable and
thriving commercial district.
The Concept Plan addresses street design
in Section 5 and Appendix D including draft
ideas for the character of Willamette Street.
Given the timing of the South Willamette
Street Transportation Improvement Project, the
concept plan will contain these draft ideas as a
placeholder to be filled after the shorter -range
street plan has been established. Development
of a longer -term vision for South Willamette,
likely including changes in how future buildings
will relate to the street edge, will carry on
concurrently, and in collaboration with, the street
improvement project. The Concept Plan will
be revised at that time to include the final result
of the long -term design, replacing the general
concepts contained in this version.
10 ■ City of Eugene
South Willamette Concept Plan
How Long is the Plan Valid?
The Concept Plan establishes a vision for the area
over the next generation, or about 20 years. In
reality, many of the concepts extend well beyond
this time line. For example, the redevelopment
potential envisioned in the plan (e.g. multi -story,
mixed use buildings) is unlikely to occur during this
period. The framework set in place by this con-
cept plan will guide change for a time horizon of
perhaps 30 or 40 years or more, which may be
needed to achieve the goals of the plan. De-
pending on the level of community investment,
this may be a more realistic timeframe for this level
of change. The Concept Plan and subsequent
implementation actions will also be modified as
needed due to significant changes in market de-
mand or the community's approach to growth.
City of Eugene ■ 11
South Willamette Concept Plan
2. PLANNING AREA, HISTORY, AND CURRENT
Planning Area
The initial South Willamette study area was
comprised of areas within one quarter mile
walking distance of the existing edge of the
commercial district between 24th and 29th
Avenues. Through the public process and
acknowledgement of natural geographic
edges, the South Willamette district study
area became focused on the area located
generally from 23rd to 32nd Avenues on the
north and south and from Amazon Parkway to
the base of College Hill on the east and west.
Public feedback, the goals of Envision Eugene
regarding compact urban development, and
areas where change is starting to occur due
to market forces helped define the "area of
effect" covered by the plan.
History
Three hundred and twenty acres of the South
Willamette area was homesteaded by William
and Elizabeth Breeding soon after Congress
enacted the Donation Land Claim Act of late
1852.
A hundred years ago, around the turn of the
20th century, most of the South Willamette
area was composed of farmland and open
pasture. Unlike today's dense, tree - filled urban
environment, the area was open and grassy,
with trees and shrubs only along the Amazon
Creek channel and near fence rows and the
few buildings that existed at the time. Several
modes of travel were available at the turn of
the twentieth century, including a system of
foot paths, horses and horse drawn carriages
and bicycles. Foot paths served the Crest area
and valleys to the south as well as the start of
the Lorane Highway, accessible from (29th)
Avenue. Downtown Eugene and the South
Willamette area are reported to have been
accessible to one another via wood plank
sidewalks or the College Hill Street Railway,
a mule -drawn streetcar operated in Eugene
from 1891 to 1900.
Founded about 1899, the Eugene County Club,
operated a nine hole golf course which covered
the area between 24th & 28th Avenues and
Willamette & Lawrence Streets, and had a
clubhouse located on the west side of Willamette
Street near 25th Avenue.
Early on, Willamette Street was being touted as
the "main business street" in Eugene running
north and south to the location of 24th Avenue.
Paving of the street downtown took place
in the first decade of 1900. Streetcar service
on Willamette Street included the College Hill
Loop and was inaugurated in 1910 as the city's
population rose to 9,009. Other infrastructure
began to be installed with electric lighting in
1912 on downtown Willamette Street and in
1914 with nearly a mile of a four -inch water main
on South Willamette Street reaching to the city
limits, approximately 24th Avenue. Around 1915,
the City Council passed a resolution requiring
concrete sidewalks instead of wood and in the
mid- 1920's additional paving on Willamette Street
was completed from Hospital Road (20th Ave)
to the city limits, still located near 24th Ave. The
streetcar service ended in 1927 and buses took
their place.
According to Polk's Eugene City and Lane
County Directory of 1918, the James S. and Julia
E. Moore dairy farm was in operation on the south
side of 29th Avenue about three blocks west of
Willamette Street. The Eugene Floral Company
operated a greenhouse at the northwest corner
of Willamette and 25th Avenue and advertised
use of the "College Crest Car" to encourage
patronage. An early Sanborn Insurance Map
confirms existence of residential and a few
commercial buildings in the area, primarily on lots
facing Willamette Street.
12 ■ City of Eugene
South Willamette Concept Plan
CONDITIONS
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Aerial Photo circa 1950
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Eugene Country Club, 25th Ave. and Willamette St. Circa 1915
City of Eugene ■ 13
"Old Dunne Place" Located at what is currently the three -way
intersection of Willamette St, Donald St.and East 32nd Ave.
1954.
South Willamette Concept Plan
2. PLANNING AREA, HISTORY, AND CURRENT
History (continued)
By 1950, the South Willamette district had taken
on much of the commercial and residential
character seen there today. Merchant supplies
and services were oriented to a growing
community. Businesses offered groceries,
automobile services, ceramics, plumbing and
cabinets to name several identified in city
directories of that era. Vehicle service stations
were located near 25th and 29th Avenues and
the street was anchored by the drive in movie
theater that occupied much of the site of
the current Woodfield Station at 29th Avenue
and Willamette Street. Most of the College Hill
residential neighborhood to the west, north of
24th Avenue had been built with single family
houses primarily between 1920 and 1950 while
the residential areas south of 24th Avenue, both
east and west of Willamette Street, were under
construction through the 1940's -60's. Apartment
buildings were being built in that era near Amazon
Parkway at 24th and 27th Avenues as well as
along Willamette Street south of 29th. It was a
time of growth and infill of the area. A school
serving the local and broader neighborhood has
occupied the Willard School site since the 1960's.
The current area we know as the South Willamette
district, and the subject of the Concept Plan, is
nestled at the end of the Willamette Valley with
the South Hills and Spencer Butte visible to the
south, and with College Hill flanking the district
to the west. The large community park, Amazon
Park lines the entire eastern border of the district
affording a full range of recreation and relaxation
activities to the local and larger community.
Current development along Willamette Street is
constructed primarily of mid -20th century auto
oriented commercial building types including a
grocery store, bowling alley, and a few remnant
shop fronts from the 1930's and 40's. More recent
buildings from the later part of the 20th century
include strip retail buildings facing Willamette
Street as well as drive through restaurants and
convenience stores. The large Willamette Plaza
shopping center, built in the 60's has been
recently updated, and renamed Woodfield
Station, with renovated storefronts and a new
high end grocery store that serves as the anchor
tenant for the center and a shopping destination
for surrounding neighborhoods.
Residential areas between Willamette Street and
Amazon Park, College Hill and the Crest Drive
neighborhood to the southwest wrap around
the commercial district. Houses to the east of
Willamette Street include mostly single story ranch
style houses or one and a half story cottages
built in the 1930's -50's. Houses in the Crest Drive
area south of 29th Avenue are constructed on
steep slopes, often multi -story or split - level, and
designed in the Northwest Style. Houses on
College Hill, mostly two story, were constructed in
the 1920's and 30's, in period revival styles like the
English Cottage, Bungalow and Spanish Mission
styles.
Occupants of neighborhood housing range from
a mix of roughly half owner and rental residents
in the area east of Willamette Street to primarily
owner occupied on College Hill. Multiple family
housing in the form of rental apartments are
located at transition points between Amazon
Park and the single family neighborhood as well
as on the southern and northern ends of the
stretch of Willamette Street within the district. A
minimum width sidewalk system, interrupted in
some blocks and locations, connects the district.
The neighborhood faces expansive Amazon Park
to the east and a shared community garden
abuts the Amazon Parkway. Willard School, with
extensive play fields and open space, anchors
the southeast corner of the district.
Current Conditions
The commercial district's unique identity is
one with small, locally owned businesses, well
patronized by the nearby community. It serves
much of south Eugene, particularly those who
travel north along Willamette to schools and
work, providing food, supplies and services for
daily needs. The residential areas are stable and
well occupied and valued by residents, many of
whom have lived in the area and invested in their
houses for years. Willard School has provided an
elementary school program and is now occupied
by a charter school. The gymnasium, playground
and playfields offer recreation and abundant
open space to the community.
14 ■ City of Eugene
South Willamette Concept Plan
CONDITIONS
As Eugene's population has grown the South
Willamette district has become increasingly
popular and has attracted more residential
interest. Recent redevelopment of Woodfield
Station and the establishment of Market of
Choice, a popular high end grocery, appear
to have catalyzed other food businesses in the
district. New restaurants, cafes and beer and
coffee venues have moved in or changed hands
attracting attention and giving the district a new
liveliness. The vacancy rate for commercial
space appears quite low based on an informal
survey of occupancy. Currently there are
almost no vacant sites and the only open land
is occupied by parking or private residential
yards. There is increasing interest in living in this
neighborhood because of its proximity to transit,
shopping, schools and parks and the University
of Oregon. Cascade Manor on 29th Avenue,
a senior housing development, has recently
been updated and new apartments for a more
mobile senior population have been added.
Though students have long rented houses and
apartments in the area, recent new apartments
are being built and marketed with features
attractive to students. The nearby Amazon Park
includes improvements, such as the nearby
running path and dog park. Lane Transit District's
popular "park and ride" bus stop is located
at 29th and Amazon Parkway and serves LCC
students as well as other commuters.
With Eugene's increasing population and use of
the district, Willamette Street traffic has become
crowded and sometimes dangerous due to the
over 70 driveways entering businesses. Though
many residents walk and bike to do errands and
socialize, the traffic conditions of Willamette Street
puts them at great risk when navigating the area.
Sidewalks are narrow and in poor repair and
interrupted by utility poles and street trees. Not all
parts of the district are connected by sidewalks,
so some surrounding residents who would like to
walk find it necessary to go out of direction to get
to their destinations.
With the rich mix of housing, popular destinations,
availability of goods and service for daily needs
and the surrounding parks, views of Spencer
Butte and desirable neighborhoods, the district is
beginning to function as a compact urban place,
or "twenty minute neighborhood."
Though transit is currently limited to bus service,
high capacity transit along the adjacent Amazon
Parkway is identified in the long term Eugene
Transportation System Plan, and could readily
bring people to the district and take residents to
jobs and other locations. The district, convenient
to downtown and the university, is becoming
more and more attractive as a place to live,
work, shop and play.
The district encompasses approximately
161 acres distributed among the following
designations in the Metro Plan:
Metro Plan Designations
Commercial
43.75
High Density Residential
4.10
Medium Density Residential
33.32
Low Density Residential
79.87
Parks and Open Space
0.21
3
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QaGJ South Willamette
' District Map
City of Eugene ■ 15
South Willamette Concept Plan
3. THE CHALLENGE
Planning, Approach, and Methodology
Integrated Approach
Area planning in South Willamette is based on an
integrated approach that considers community
participation, planning with urban design, and
community investment as three interdependent
guides to creating holistic long term visions.
Community Participation
The Concept Plan was developed incrementally
from very broad concepts based on South
Willamette area community input and the
guiding principles, or pillars, which emerged
from the community engagement process of
Envision Eugene. All who sought to be part of
the communications, workshops and evolution of
the vision were encouraged to join the planning
process.
Grass Roots: Following initial discussions
in response to grass roots collaborative work by
Friendly Area Neighbors and the SouthTowne
Business Association, the public engagement
process was built on a foundation of informal
interviews and listening sessions with interested
business people, residents and property owners.
Best Outcomes: These discussions
explored aspirations for the area and centered
on improvements to the business and pedestrian
environment on Willamette Street as well as
the introduction of a variety of urban housing
types. Important products from the listening
sessions were individual descriptions of "worst
outcomes" and "best outcomes" for the process
and the district. These outcomes were used to
set in motion initial diagrammatic designs and
workshops.
Synthesis of Ideas: In an early step in the
process, an overview of community insight about
the district was synthesized into three maps:
"Places we Love, Working Well, and Opportunities
Exist ". These provided a starting point to identify
places that should be valued and enhanced and
places that represent opportunities for change or
transformation.
• Communications: Regular communication
online and by direct email to a contact
list that grew to over 600 people, and to
numerous neighborhood and business
newsletters, kept information up to date and
feedback going to the planning team.
U[*1
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• Student Idea
{ Places for
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Design Workshop
April Ocf Jan
2011
Oct 3
Dec7 2012
16 ■ City of Eugene
:Early Diagraming
:Charette
South Willamette Concept Plan
Building Form
Focus Groups: Special meetings with
smaller groups were used as helpful tools to focus
on specific concerns or challenging planning
options.
Workshops: Through a series of public
workshops, including table discussions and
hands -on planning and design, the form of the
district was tested, modified, and refined. Major
workshops were summarized in highly illustrated
reports describing content and outcome of the
events.
Online Presentations and Questionnaires:
Video presentations for three major workshops
were provided online for those who could not
attend events. Questionnaires available to
those who viewed online or attended workshops
resulted in over 450 responses during the design
development phases.
Coordination with South Willamette
Transportation Improvement Project: The parallel
and integrated Willamette Street improvement
component of the project with its own robust
public outreach, provided an enriched set of
opportunities for the public to receive information
and provide input on both the street and the
district wide area planning concepts.
Focus Groups
Revised Concept Plan:
Building Form
Public Engagement Activities
• Ongoing extensive conversations:
• Neighborhood Meetings
• Residents
• Property Owners
• Business People
• Southtowne Business Association (SoBA)
• Project updates:
• Regular FAN, SoBA, SEN, Crest
Newsletter updates
• Historic Review Board
• Chamber of Commerce
• UO Architecture Design Studio
• Atrium Presentations
• 4 Public Design Workshops (topics, reports
linked online; see Appendix E)
• 3 Online Presentations & Surveys
• 450 Survey responses this year
• 3 Postcard mailings to residents and owners
• Periodic email updates to 600 on Interest
List
• Ongoing collaboration with SW
Transportation Improvement Project
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Revised Concept Plan:
Streetside Character
Final Draft
Concept Plan
April Oct Jan
June 29
Wmill
2013
City of Eugene ■ 17
South Willamette Concept Plan
3. THE CHALLENGE
Planning, Approach, and Methodology
Planning with Urban Design
From the beginning, the South Willamette
Concept Plan was visualized in terms of an urban
design framework, one which considers the
role of streets, open spaces and building forms
in creating the stage for shared experiences.
The process involved the interlayering of public
conversations about best outcomes for the district
with design illustrations. This new path engaged
City of Eugene Planning staff and community
members in a unique and robust interactive
design and planning process, using design and
drawings and hands on workshop activities. In this
way, the vision for the future could be viewed for
immediate response from the plan participants.
The approach relied on sharing hopes for the
future living and working environment of the
district and distilling those into a desired physical
form that people enjoy, yet makes sense from an
economic perspective.
Community Investment
Throughout the process, the concepts being
developed were considered in the context of
economic feasibility and community investment.
Guided by Envision Eugene, it was essential that
the concepts being proposed supported the
growth of housing and jobs in locations where
success seems likely, and meet integrated goals
such as economic success, compact living,
efficient transportation and affordability. Tools
to implement the vision, identified in Envision
Eugene and founded on other processes such
as Opportunity Siting, were further refined and
integrated into a Community Investment Program,
outlined in Part IV, Implementation Plan.
Plan Development
Plan development occurred from the initial
meetings in early 2010 through the fall of 2012
in an interactive process of public meetings
and Eugene Planning staff development of the
concepts for further input and refinement in the
public process. The methodology for developing
the South Willamette Concept plan evolved
through several phases:
Investigation
• Broad problem identification and community
input, as described above in "Community
Participation."
• On site analysis of district and collection of
information about current conditions.
• Development of digital "models" of the
existing streets and buildings in the district.
• Obtaining a grant to develop a concept for
Willamette Street, a primary issue identified in
early investigations.
Exploration of Ideas
• Generation of urban design imagery for
shared discussions of the desired future.
• These included planning staff developed
illustrations of a future South Willamette
district as well as a University of Oregon
Architecture Design Studio that explored
issues and resulted in designs that captured
the imagination and catalyzed discussions.
• Using the integrative "planning through urban
design" approach, ideas were continually
illustrated for ongoing discussion and
refinement.
• New information gained from the early
design and planning discussions, and multiple
meetings with community participants,
provided the basis for a series of public
workshops and focus groups.
18 ■ City of Eugene
South Willamette Concept Plan
Analysis and Integration
A series of four primary public workshops
and online presentations, with questionnaire
feedback, between October 2011 and October
2012, with the following objectives and outcomes
Greater development of the products of these
workshops is provided in Part IV, The Vision:
October 2011- Hands on design charrette,
or workshop, manipulating colored paper
representing street, bike and pedestrian
networks as well as a range of building
types. Eight table groups of community
members, design professionals, planning and
engineering staff worked together to identify
"big ideas" for the long term vision of the
district.
December 2011- Synthesized results of the
October design charrette workshop were
provided to show shared vision and areas
for further work. Also presented was the first
draft concept plan in a series of seven maps,
identifying locations for uses in the district.
Table groups provided organized feedback
and direction for going forward.
June 2012 - Presentation and discussion of a
revised draft concept plan and the emerging
vision for building forms. The focus was on
illustrations of district -wide cross sections
showing the size and shape of allowed
existing development and a proposal for
future development, generally of a more
compact and integrated scale. Introduction
of new zones, Single Family Options and Row
House, which support gradual transitions
between building types.
October 2012 - Presentation and discussion
of finer grain design details and streetside
character along the following street types:
Willamette Street, Side - Street Mixed Use,
Apartments & Condos, and Single Family
Options. The workshop offered opportunities
to discuss design of building facades and
the features that are most important for
contributing to success of the district.
Detailed study of tools to provide transitions
between building types was also discussed.
Workshop presentations are available at:
http: / /www.eugene- or.gov /swillamette
Integration with the South Willamette
Transportation Improvement Project:
Ongoing collaboration on design concepts
for the street and the long term vision for the
streetside character of Willamette Street was
integral to the process.
20- Minute Neighborhoods are walkable
environments that provide convenient, safe,
pedestrian focused access to every -day
needs. Services such as transit, work, school,
food, shopping, parks, and public spaces
for social activities are all located within a
20- minute journey.
City of Eugene ■ 19
South Willamette Concept Plan
3. THE CHALLENGE
Key Challenges and Opportunities
One of the key objectives of extensive public
discussions, including listening sessions and focus
groups, was to explore the range of issues facing
the district both challenges and opportunities.
Not surprisingly, some defining features of the
project are at the top of both lists, for example
South Willamette Street itself. While many more
specific challenges and possibilities exist within
the district, the following outline captures those
that are most central to the goals of this planning
effort.
Key Challenges
District -Wide
• The district is used by many different people
with different values and needs
• Many current businesses are viable but
vulnerable to the impacts of change
• New development and redevelopment will
impact current residents
• Existing neighborhoods within and adjacent to
the district are currently desirable
• Some currently affordable housing in the
district could be displaced by more expensive
housing through redevelopment
• The district lacks a "center"
• Grade changes across the district create
design challenges for streets and buildings
Transportation
• South Willamette Street is unattractive and
dangerous for pedestrians and bicyclists
• Conflicts exist between the needs of
commuters and those visiting local
destinations along Willamette Street
• Changes to South Willamette Street may
impact current business owners
• Pedestrian connections are lacking within the
district and to some adjacent neighborhoods,
e.g. College Hill
• Bike access is poor within the district, in
particular on Willamette Street
• Access from one business to another is difficult
and requires customers to drive in between
• Connections are poor across Amazon
Parkway to Amazon Park
• Parking is fragmented and creates an
unpleasant pedestrian experience
Building Form
• Current code allows buildings that are out of
scale with district, e.g. 120' tall
• The relationship of buildings to the street
doesn't work well for a walkable district
• Some existing buildings detract from the
character of the district
Parks, Plazas and Green Space
• The district lacks public plazas for community
gathering
• The district lacks pockets of semi - public space
or green space
• Some nearby parkland lacks amenities that
could serve the neighborhood, e.g. near the
Amazon Community Garden
Key Opportunities
Characteristics of the Area
• The area already has many qualities of a
20- minute neighborhood upon which to build
• A long- standing desire to improve Willamette
Street promotes interest and engagement
• An active business association (SoBA) currently
supports district -wide improvement efforts.
• Interest is growing in living in diverse housing
types in the area.
• The area offers a variety of successful
businesses and is a popular destination for
shopping and entertainment
• The market is more favorable for
redevelopment in the South Willamette area
than in many other areas of town
• There is investor interest in potential
redevelopment in the district
• The area is experiencing change, highlighting
the need for planning
• A variety of parks are already available near
the district, including Amazon Park
• Grant funding has been received to address
short- and mid -term improvements to
Willamette Street; the project is currently
underway
Broader Community Trends
• Transportation improvements for the area are
a high priority in the Bicycle and Pedestrian
Master Plan
• Interest is growing for active travel modes such
as walking, biking and transit
20 ■ City of Eugene
South Willamette Concept Plan
Guiding Principles
Aside from the overall purpose of the planning
effort as described in Part I, in -depth public
participation established a set of guiding
principles that the Concept Plan seeks to achieve
and balance within the district:
0
Vision: Create a clear, compelling and
achievable long -term vision for the South
Willamette district supported by specific actions
Character: Support and enhance the best
qualities and unique character of the South
Willamette district as a great place to live, work,
shop and play
Balance: Guide future development in the
district, including accommodating new jobs and
housing for future residents, with a balance of
appropriate building types, uses and locations
Sustainability: Promote sustainability at every
level within the district
Business Success: Promote commercial success
and vitality of existing and future businesses
Housing: Provide for more, diverse housing
opportunities for all income levels
Health: Promote public health by creating a
safe, inviting, and walkable district that works well
for all travel modes, provides public parks and
gathering places, and promotes a healthy and
active lifestyle
Access and Equity: Ensure multi -modal
accessibility and connectivity, including transit,
auto, bicycle and pedestrian, within the district
and between the district and surrounding areas
Gradual Change: Plan for gradual change and
thoughtful transitions to minimize impacts to
existing residents and businesses while providing
opportunity for the district to transform towards a
future vision
ik W a
Creating plan through major public workshops
City of Eugene ■ 21
South Willamette Concept Plan
4. THE VISION
Introduction
The vision for the South Willamette district is
described through this document, including maps,
diagrams, and illustrations that communicate as
clearly as possible the desired future condition
of the district. In many cases, the illustrations
provide a starting point for the next steps of
implementation, for example creating a land
use code that focuses on form (such as a "form
based code ") for the district, or design guidelines
to inform future development. In other cases,
concepts provide more general direction
where specifics are not yet clear, for example
opportunities for public plazas or semi - private
open space. Illustrations are accompanied
by a brief description to reinforce or clarify the
intended outcomes, or to provide further direction
or criteria for how each concept may be realized.
Key Design Concepts
The long -term vision for the South Willamette
district is built on a foundation of key design
concepts. These concepts provide structure and
guidance for important design choices within the
district as a whole.
Re- define Willamette Street as public space
Transform Willamette Street into a positive and
defining feature of the district through incremental
changes and improvements, in particular as
properties redevelop over the next several
decades. This concept focuses on creating
a safe and attractive pedestrian realm at the
street edge, or between the curb and the face
of buildings, including street trees and furnishings,
adequate space and separation from traffic, and
attention to detail in building design. Connect
both sides of the street through frequent, safe and
attractive pedestrian crossings, and define the
district clearly through gateways. The street must
also accommodate all modes of travel safely,
and provide clear, safe access to business and
parking areas.
Reinforce existing patterns
Allow the existing patterns of success, vitality,
and mix of uses in the district to carry forward into
future patterns, including the general relationship
of shopping and residential areas as well as street
relationships and hierarchy. A rich mix of allowed
uses currently exists within the district, most of
which is already developed at significantly lower
intensity than allowed. Targeted changes to
smooth transitions between development types
and some increase in housing opportunities,
for example along Willamette Street and 29th
Avenue, will meet future needs while remaining
within the scale of the district. Existing street
layout and connections are also expected to
meet the needs of the district over time with
the exception of new connections within the
Woodfield Station and Willard School site blocks
pending future redevelopment.
Create a "walkable heart" for the district
Establish a pedestrian- oriented "shopping
alley" to link the existing business cluster on Oak
north of 27th with shops along Willamette Street
between 27th and 24th and provide focus for
a walkable experience. The "walkable heart"
should include active retail uses such as shops,
restaurants and night life enhanced by public
realm improvements such as wide sidewalks,
paving patterns, special lighting, street furniture,
priority street crossings (e.g. bump -outs and raised
crosswalks), planters and other amenities. Create
options within the district for shared parking to
allow "one stop" access to a walkable network
of multiple businesses and locations, and locate
parking to the back or side of shops to maximize
store frontages on shopping streets.
Create connections with future high - capacity
transit stations
Extend higher- intensity uses from the core of
the district east along 29th and 27th and 24th
Avenues to Amazon Parkway and the likely future
location of high- capacity transit (EmX) stations.
On 29th Avenue, allow higher density residential
uses facing the street, continuing the pattern of
"row house style" building fronts found further
west. Blend these allowed uses with adjacent
low- density residential development through
strong transitional requirements.
22 ■ City of Eugene
South Willamette Concept Plan
Establish a network of green streets and public
spaces
Opportunistically seek locations along the
"walkable heart" of the district for at least one
public plaza for social gathering, events, leisure
and added value for adjacent businesses and
development. Throughout the district, create
opportunities through private development or
public /private partnerships to establish small
outdoor spaces such as forecourts, courtyards,
open corners, paseos, and locations for outdoor
seating along key pedestrian routes. Design
key pedestrian connections, for example along
27th Avenue and 29th Avenue, to include green
elements such as street trees, bio swales and
plantings, to link the district conceptually with
Amazon Park.
Design for the human scale
Establish desired building forms that allow for
high- intensity uses where appropriate, such as
along Willamette Street, while reducing the
apparent mass through height limits, step- backs,
and strong transitions to lower- intensity adjacent
uses. Emphasize detailed, high - quality design of
buildings at the street level. Within and adjacent
to existing neighborhoods, introduce smaller -scale
buildings and inviting building fronts with porches,
balconies, forecourts and attractive entries.
City of Eugene ■ 23
South Willamette Concept Plan
4. THE VISION
Willard School Site Options
• Remains as a school
• A smaller school with open space
and housing options
If no longer used as a school:
Single and multiple family housing
options and open space (shown)
Establish a public plaza,
network of green streets and
public spaces as opportunities
arise along the "walkable
heart" of the district.
Transform Willamette Street
into a positive and defining
feature of the district through
incremental changes to street,
sidewalk, trees, building fronts,
and safe crossings.
Rich mix of single and multiple
family housing types such as
clustered cottages, courtyard
houses, row houses, apartments
and condos, offer housing
choice.
Connect the district to future
high capacity transit stations
on Amazon Parkway with
walkable streets, trees and
row -style apartments and
condos.
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04
24 ■ City of Eugene
South Willamette Concept Plan
Building scale transitions
between mixed use and
residential areas defined by
design guidelines and form -
based codes.
Design for the
human scale
with detailed
design at
street level
Shared parking areas, alley
and thoughtful
Find opportunities for parking and "tuck -under
building scale
public- private open parking support walking and
transitions.
space within the reduce driving between
walkable business businesses.
district.
- •�-�,
Improved Willamette
Street for all users.
f
p
Better bike and pedestrian
connections from Amazon
'k
Parkway.
Create a "walkable heart"
for the district and pedestrian'
"shopping alley" to enhance
Row houses, trees, pedestrian
the business and shopping
enhancements create
experience.
opportunities facing Amazon Park.
Reinforce existing patterns
of success, vitality and mix of w
uses with some new housing N
opportunities to meet future
needs.
Illustrative Plan
The illustrative plan for
the district represents
an imagined future
vision for the area. In
order to understand the
intent of the vision, the
plan is drawn as if the
entire district were fully
redeveloped within the
urban design framework
set out in this concept
plan. In this way, the
combined effect of
features such as improved
streetscapes, gathering
and green spaces,
buildings closer to the
street, parking located
under and behind
buildings and in shared
lots or garages can be
illustrated.
The Concept Plan is
conceptual in nature.
The boundaries represent
the study area for the
plan and may need
to be adjusted as the
implementation tools for
the district are developed.
City of Eugene ■ 25
South Willamette Concept Plan
4. THE VISION
CONNECTIONS AND OPEN SPACE
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The Concept Plan is conceptual in nature. The boundaries represent the study area for
the plan and may need to be adjusted as the implementation tools for the district are
developed.
Essential Features:
• Willamette - signature
street of district
• 27th Avenue
Enhanced entry
point
View corridor to
park
• Heart of walkable
district
• Shopping Alley
• Enhanced pedestrian
and bike connections
• Outdoor gathering
• Shared Parking
• Greener Streets
Safe, attractive
pedestrian experience
Points of entry to district
re
New or enhanced
pedestrian
connections
Heart of the walkable
district; highly walkable
area
0*0 Future BRT route
Public open space
opportunities
Public or semi-
public open space
opportunities
Shared parking study
area
26 ■ City of Eugene
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The Concept Plan is conceptual in nature. The boundaries represent the study area for
the plan and may need to be adjusted as the implementation tools for the district are
developed.
Essential Features:
• Willamette - signature
street of district
• 27th Avenue
Enhanced entry
point
View corridor to
park
• Heart of walkable
district
• Shopping Alley
• Enhanced pedestrian
and bike connections
• Outdoor gathering
• Shared Parking
• Greener Streets
Safe, attractive
pedestrian experience
Points of entry to district
re
New or enhanced
pedestrian
connections
Heart of the walkable
district; highly walkable
area
0*0 Future BRT route
Public open space
opportunities
Public or semi-
public open space
opportunities
Shared parking study
area
26 ■ City of Eugene
South Willamette Concept Plan
Introduction
Central to making the district a great place is
a safe, engaging and unified feel to the public
spaces that knit the district together. The
Connections and Open Space map describes
the street, paths, parks and community gathering
features that form the future vision of the district.
These and the semi - public spaces such as front
yards, courtyards, parking areas and streetside
features fronting on shops and restaurants
compose the framework for living, doing business
and shopping in the district. These elements,
together with buildings facing the public areas
form the "public realm" experienced by residents,
shoppers and visitors to the district, as well as
those who commute through.
Indicated on the map are concepts for the
evolution of South Willamette Street, the north -
south spine, into a more vibrant and walkable
commercial shopping and business district. Within
this spine and jogging over to Oak Alley and Oak
Street is a section identified as the "Heart of the
Walkable District," where retail uses and active
shop frontages are emphasized. Successful
walkable shopping districts are typically
developed in a compact radius to allow shoppers
to browse and easily access multiple destinations.
The Oak Alley segment, at the heart of the
walkable area, provides a transition between
clusters of shops to the north on Willamette Street
and to the South on Oak Street. To support the
walkable areas, a swath of the map is indicated
as a "shared parking study area." Within this
area, locations will be identified for shared
parking so that visitors who drive can park and
patronize multiple shops and services in one trip
without needing to drive out onto the street and
relocating their cars.
Gateways, which could simply be entry points, or
could be developed with signage or landscaping,
are noted as elements to reinforce district
perimeters and identity. Additional pathways
and bicycle access points are identified on the
map for future implementation to fill in missing
connections or take advantage of opportunities
to create a more vibrant interconnected
neighborhood.
. Public and semi - public open space
opportunities are also indicated as important
outdoor locations connecting the district. The
map also highlights 24th, 27th and 29th Avenues,
as well as portions of High and Oak Streets for
a "safe and attractive pedestrian experience."
Street trees, improved or widened sidewalks and
lighting are some of the elements to be used
to enhance these streets. These concepts are
further developed in the Streetside Character
section of this document as well as in the
conceptual "Street Typologies," included in
Appendix D.
How will the Concept Maps be implemented?
• Gradual redevelopment
• Community Investment Program
• Special Area Plan with form based hybrid
code guiding form of new buildings,
limiting heights in mixed use areas
• Single Family Options zone and
Apartment/ Condo Row House character
areas
• Monitoring change over time to adjust for
changing circumstances
See further description: Section 7,
Implementation Plan
City of Eugene ■ 27
South Willamette Concept Plan
4. THE VISION
PLACES FOR BUSINESS AND LIVING
it
a
a —
a
Revised June 2013
1 23,,1 Hyenue -
L
AYh Avenue 24th Avenue
X
Imo_- it -
24th Place 24th Place
"f // v
Amazon
Park
r 25th AVenuE _
.261h A _
E EE �
2Jth A venue - -
/ 28th Avenne 1
� Woodfield
Station
LTD
/' Station
29th Avenue Ow
� — a
I L I ; a
29th Place .,
- 3othAVenue
Key
Mixed
Ap menu /Condos a1Av¢nG�
/// R H se Character Requ d
F/% ( doss L.E'
5 ql Fam ly Opt .ns
(C°tta9e <lu ster 11,11111 H111111
es for
&Sngle Fam ly Detached sec dary � — -
DwellnryAlleyA<cessLatsl \ Q
j/ Row HOUSe Allowed (sw) li' o�N -
change. ly fsie NP
- s n.lon� d sa school - �
= B usi - ne ss &
Essential Features:
• Mix of Uses
• Business and
Housing near parks
and transit
• Development scale
transitions
• Special Areas for
• Single Family
Options
• Row Houses
• Opportunity Siting
process
Design Principles
• Define the district through
consistent and attractive
building forms
a] Mlxed Use
Apartments /Condos
Apartments and
Condos with Row
House Character
Single Family Options
(Cottage Clusters,
Courtyard Housing,
Single Family
Detached, Secondary
Dwelling, Alley Access
Lots
Row House Allowed
(Single Family Options)
Change occurs only
if the site is no longer
used as a school
The Concept Plan is conceptual in nature. The boundaries represent the study area for
the plan and may need to be adjusted as the implementation tools for the district are
developed.
28 ■ City of Eugene
South Willamette Concept Plan
Introduction,
While new concepts for mixing uses and new
types of buildings are embodied in the plan, the
underlying framework reinforces existing develop-
ment patterns in the district. The plan provides
places for commercial uses as well as a wide
variety of housing. Mixed use development,
which permits retail, office and residential uses in
the same or adjacent buildings, is indicated along
much of the length of Willamette Street and into
areas that are currently zoned "commercial." The
mixed use designation extends a block further
south than the existing commercial district and
north into the office park near 23rd Avenue.
Apartments and condos as well as single family
dwellings are located in areas that are primarily
currently developed or zoned for those kinds of
homes. In order to enhance the neighborhood
as it changes over time and to promote compat-
ible development and logical transitions between
building types, three new categories of housing
are identified: Single Family Options; Single Family
Options that allows Row Houses, and Apartments/
Condos with Row House Character. These zon-
ing designations will maintain existing allowed
single family residential densities. The building
types and detailing for these types of dwellings
will be developed through design guidelines and
a form based code. These refinements to existing
zones are meant to reinforce desirable transitions
and an attractive and enjoyable pedestrian and
neighborhood experience. Importantly, these
housing types address important goals of Envision
Eugene to provide opportunities for housing af-
fordable to all income levels. The smaller dwelling
types with options for ownership, particularly in
existing established neighborhood near transit, of-
fer types of dwellings that are less common in our
community.
Single Family Options (SFO): This category of
housing is located predominately in areas that
are currently single family dwellings. These areas
could be developed with clustered cottages,
courtyard housing and single family detached
houses.
Row House (SFO /RH): The Row House category
is a subset of Single Family Options and would re-
place the existing Row House Zone in the Eugene
Land Use Code. Row houses are a desirable
housing type, and are most successful when built
along a continuous block or in specifically identi-
fied areas. Row houses create a unique urban
streetside character offering the potential for
rental or private ownership. The row house areas
are shown on the map in locations that provide
gradual scale and intensity transitions between
single family areas and more intensive uses.
Apartments /Condos with Row House Character:
This category is a subset of Apartments/ Condos.
A row house character with a rhythm of doorways
facing the street at regular intervals, front stoops
and small sidewalk facing yards are characteris-
tics of this housing type. This category is shown on
the map along important walking streets, such as
29th Avenue, and along Amazon Parkway, and
along Portland and Oak Streets near single family
housing.
This mix of housing and building types have been
carefully considered through the community
discussion to offer a wide range of business and
living options that provide for future growth in a
pattern of gradual transitions.
Willard School: Currently, it is anticipated that the
Willard School site will remain in use as a school
by 4j School District; however, during the pub-
lic engagement process, it was recommended
that a conceptual plan be developed in the
event the site is no longer used as a school. The
resulting concept indicates a development that
features open space, visible to the community
at the corner of 29th Avenue and Lincoln Street
with housing. The remainder of the site is shown
as developed with apartments and condos, with
a row house character where facing 29th Avenue
and with Single Family Options /Row House on the
northern areas adjacent to existing single family
houses. A network of streets and paths connect-
ing to existing travel ways would provide access
to the uses. provide access to the uses.
City of Eugene ■ 29
South Willamette Concept Plan
4. THE VISION
DEVELOPMENT TYPES & NEW ZONES
T
Y
4V 19 Mill it - " a
5 ` o
E
Revised June 2013`
5
z�rtra =we
,< 5
s
24th Avenue 24th Avenue
- - -----
3i5 5 `5 4
1--- '------ 3
24th Place 24tH Place
--
3 315 5 i5 iv
1 5.1/3 3 3 Amazon
' 315
o ,F
� - -m Park
25th Avenue - - - - -- - -- -� O
1
v
3 � ° 3 5
26m n
< j 3/.
` 2- Avenue :5 , ji 3
�j 3
' 3 5 5 -
5 5.
271h Avenue
3 5
1 1
3 3 5
1! 5 5
:5
5 1 1 i5 3
2
BhA
__ i
7
s�ov/
:4 Woodfield 1 5 � 15 �}
SSdLiDD EI
LTD
5 -� 6_ -�� ' /_,� Station
_ 29th Avenue
---- --------- - ---- 5 -- 5 5 5 1'3, /i, "� 3, =o
r
F ---- 7----- 2 1 5• :5
8 II o u LL
t
7 - -- 7 1
2-P.-
3 3
Li L
_ :5 3
Key: 30t1, Avenue J
31$
mi.ed -ute 1 5 - 3 N
Apartments /Condos 31 th Avenue
/ R wHOUSe Chancier Required 1 5 1 3
315 � �I
I -
S gleFamlyOp£ons li - / : ,5 3
(cona C1—Co 1a dH.—o% . - -..
in9le Ferny Detzchea econazry
erring Alkv Aa— oar " r
R.. H.... Allowed (s,o) 1 7 �, t r
-- Building He ghi Change '� 3 '
15'Deep 35t., Stepnack 3 a nd Ng w Zone
� g eatn,snnyrs�e I -
cnan
tnmm� ,-,
The Concept Plan is conceptual in nature. The boundaries represent the stu area for
the plan and may need to be adjusted as the implementation tools for the district are
developed.
Heights and Stepbacks
The numerals overlaid
on the Places for
Business and Living map
represent the number
of stories for buildings in
the locations and uses
shown on the map.
Some blocks are split
with a heavy dashed
line indicating a change
in building height as
the site transitions to
a different intensity
use. For example,
Apartment /Condos
along Portland Street
are shown at five
stories next to Mixed
Use development and
transition to three stories
along the street near
Single Family Options/
Row House. The lighter
dashed lines shown near
the streets represent a
"stepback" in building
height to create a
lower scale building
height along the street,
allowing more light
and air and views, and
stepping back to taller
heights away from the
street.
30 ■ City of Eugene
South Willamette Concept Plan
MlxedUse .................................................
Multi story buildings witha
maximum of three stories
i"
adjacent to street, step-
ping back 15 feet to five
stories. Active transparent
,•
ground floor frontages.
Retail or other commercial
,,
on the ground floor with
commercial or residential
uses above.
Apartments /Condos
Apartments and
Condos with Row
House Character
Row House Allowed
.... ...............................
(Single Family Options)
Single Family Options
(Cottage Clusters,
Courtyard Housing,
Single Family De-
tached, Secondary
Dwelling, Alley Access
Lots
Building Height
Change
15' Deep 3 -Story Step -
back
Change occurs only
if the site is no longer
used as a school
Single or multi -story buildings to
maximum heights as shown on
Concept Plan. Buildings over
three stories limited to three
stories at street edge with a step
back to four or five stories where
allowed on Concept Plan.
Apartment and condo buildings
composed of apartment flats,
or row houses, with a rhythm of
entry porches and doorways,
and small front yards along
the street, providing frequent
opportunities for neighbors to
meet and a safe and attractive
pedestrian experience.
Attached narrow
row houses, two to
three stories tall, with
doorways, porches
and small front yards
facing the sidewalk.
Small houses facing
courtyards, cluster
cottages in addition to
single family houses.
City of Eugene ■ 31
South Willamette Concept Plan
4. THE VISION
ACTIVE AND RETAIL FRONTAGE
a
Revised Ju e 013
2
24th -A
' 241h Plxe 24th Place
F L- / //. % 5 L
L �l � / 26t41A�JUe'.
i
— 2fith Avenue /
LI I� „ ;,,, /, /,
28 h Avenue
wala,a ;�
s�nd�l
Woodfield E
Station o
To planned it J
coordination with 4J
School District. ) J
29th Avenue
24th Avenue
Amazon
Park
a LTD
Station
/
Sol
K ;Y o 29th Place �
a
Active & Retail Frontage
The walkable portion
of business districts,
particularly those
associated with nearby
transit, are found to be
most successful when
the pedestrian oriented
shops are clustered
closely together. Similarly
the synergy of similar
businesses (restaurants,
car dealerships), located
near one another has
been shown to promote
the success of all. With
this principle in mind,
the concept plan calls
for active retail uses,
including cafes and
restaurants, along the
heart of the walkable
mixed use district. To
support this, the codes
and guidelines for the
district may emphasize
active frontages with
minimum number of
driveways, large window
openings facing the
street, streetside cafes,
frequency of entrances,
and upper level office or
residential uses.
3�hA nu¢ Mlxed Use
N;/r Retail Frontage
3 1tH Pvenuz
Key - I
�— Apartments /Condos
Retail Fron
MixedLS �
9e PIdceS r— Single
and Housing,
Single Family Options
Apartments /Condos '��
(Cottage Clusters,
- - -- Single Famly OpYnns s.. - Business ivi Y g,
—- - o � ge ,, o / � =,. �7,-
R— h-- Single FZmdY--d)
- Active - $r Re Ffrontage Single Family
Detached, Secondary
— Dwelling, Alley Access
Lots
The Concept Plan is conceptual in nature. The boundaries represent the study area for
the plan and may need to be adjusted as the implementation tools for the district are
developed.
32 ■ City of Eugene
South Willamette Concept Plan
City of Eugene ■ 33
South Willamette Concept Plan
4. THE VISION
DISTRICT SECTIONS
District Sections are cross- section drawings
cut through several blocks of the district for
the purpose of illustrating the potential future
long term build -out of the area. Though only
some areas of the district are expected to be
redeveloped over the next twenty or more
years, it is not known exactly where the market
will identify opportunities. The purpose of the
sections is to show the size, scale, height, setback
and "stepback" of building forms that would
be allowed in any particular area that may be
redeveloped.
D -O� I_
-I LIJ-LIJJ I_
Apartments/ Condos
75'stepback
Section through 24th Ave
0 ----- - - - - -- O;
O
lette Street
ight -of -way
15 tepback 25 tepback
The adjacent diagrams illustrate part of several
district sections, at 24th Avenue, the "Shopping
Alley" and Willamette Street. The full District
Sections, located in Appendix B, were developed
through the area planning process and public
conversation about building height, form and
appropriate locations for higher and lower
intensity development. Shown in each section
is a grey shaded area that represents existing
building heights allowed by current codes, as well
as a blue dashed line that represents building
envelopes in the Concept Plan. In many cases,
such as the mixed use areas, the building height
allowed would be much reduced from the
existing permitted 120 feet.
4
oak Alley ,
1 right -W -waY 25.stepback
Section through Shopping Alley near 27th Avenue
Tr--------- - - - - -n
I L --------
I O
1
0 00 00
I I
I
�r - - - ® ® E L - -- ® I
00 0 E 0
I
1
r l
24th Ave Apartments/ Condos 23rd Aly.
65' Right of Way iz'Rightofway
15'stepback 75'stepback
= Oak Street
15 stepback i5 rtepba<k
60'right -of -way
34 ■ City of Eugene
South Willamette Concept Plan
__ Currently allowed
m
' :_ New maximum
,
mm N ,
L( Building Envelope
W cu„iy
alto d
builtling
velope
Section through 24th, West of Amazon Pkwy.
Looking West
------------- - - - -.
,
e
How will District Sections be implemented?
This information will be used to take the
concept plan to the next step of creating:
• development standards,
• design guidelines,
• design review and
• form based hybrid codes that guide
building location and form of new
development.
See further description: Section 7,
Implementation Plan
('
.- - -- -------- - - - - -- - - - - -- f
30'+ Roof S
r
29th Ave.
Only whe adjacent to Only when adl scent to single
sin family houses 60'Right of Way familyhou
Section through 29th Ave
City of Eugene ■ 35
ou rignt -ot -way
15'stepback 15'stepback
Section through Willamette Street
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
TRANSITIONS AND COMPATIBILITY
Introduction
Transitions between building forms and from
one use to the next contribute to the rhythm
and interest of a mixed use neighborhood such
as South Willamette. Attention to how these
transitions occur has been a significant focus in
developing the Concept Plan. Our community's
values support gradual transitions between lesser
and greater intensity of uses, with particular
attention on creating comfortable places to live in
multiple family and single family residential areas.
Many transitions, such as those affecting light,
privacy, views, and proportions can be addressed
through the shape and form of buildings. Careful
transitions can help mitigate noise levels and
traffic in mixed use neighborhoods, by separating
dissimilar uses with distance, parking areas,
and landscaping. Also important is awareness
that some adjacent uses will have dissimilar
characteristics that cannot be completely
mitigated. The District Sections, shown in
Appendix B of this plan demonstrate many of
the scale transitions being built into the plan. The
watercolor illustrates the gradual transition in scale
of buildings that the plan calls for from Willamette
Street, over the distance of a few blocks, to a
single family area. Setbacks, "step backs" and
transitions, or step downs, elements illustrated
in the sections, will be implemented through a
"form based code" and design guidelines. These
tools, different from traditional use -based codes,
will guide the shape of building development. A
form based code specifically defines a frame or
"building envelope" that can be used to soften
transitions between adjacent buildings and uses.
The adjacent images illustrate a range of building
and site alterations that can improve transitions
and enhance neighborhoods with a mix of
building types. Methods such as using open
space and parking lots on the more intensive
site to create separation and distance, stepping
down heights and sloping roofs near smaller
buildings, articulating or fragmenting the facades
of buildings to reduce the scale of walls, and
using walls and landscaping to strategically
maintain privacy and frame views.
30'+ Roof Slope
Blended building transitions, for example from
apartments to courtyard or cluster houses to single
family houses.
--------- - - - - -�
36 ■ City of Eugene
Only when adjacent to single
family houses Courtyard housing on two lots
South Willamette Concept Plan
Elements
1. Reduced Height
2. Setback with Parking or Yard
3. Articulated Walls
4. Sloped Roof
5. Window Placement
City of Eugene ■ 37
Buffer multiple family housing adjacent to single family
housing with parking, frees, and building features.
Transition between multiple family housing and single
family housing with an intermediate scale building type
such as row houses.
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
TRANSITIONS AND COMPATIBILITY
r
South Willamette Concept Plan
Design Principles
• Define the district through consistent and
attractive building forms
• Minimize impacts of new development on
existing residential uses.
• Create a clear transition from public to private
space along residential streets
• Use building form transitions to blend
between business and living sections of the
neighborhood
• Create gradual transitions from buildings and
uses of greater intensity and volume to lesser
intensity and volume
How will Transitions, Streetside Character, and
Building Design Elements be implemented?
The Concept Plan will guide creation of:
• Gradual redevelopment with development
standards and design guidelines, design
review
• Form based hybrid code to guide building
location and form of new development
• Long term vision for Willamette Street
• Pilot Single Family Options and Apartment/
Condo Row House Character zones to
provide transitional scale housing types
• Capital Improvement Program to
update sidewalks, street trees and other
infrastructure
See further description: Section 7,
Implementation Plan
City of Eugene ■ 39
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
STREETSIDE CHARACTER
Introduction
The "streetside character" defines the pedestrian
realm at the street edge, or between the
curb and the face of buildings. It includes the
sidewalk, street trees and furnishings, buffering
space between pedestrians and traffic, and the
details and features of building facades. The
following illustrations describe the elements and
unique characteristics of the mixed use and
residential streetside realm.
Mixed Use Streetside Design Elements
Streetside design elements define business
frontages and the experience of pedestrians
and other travelers through the district. Elements
such as sidewalks, landscaping, pedestrian
scale lighting and transparent and inviting shop
front windows, along with cafe or merchant
activity help create a vibrant attractive business
experience in walkable areas. These elements
and how they might frame the streetside
character are illustrated in the diagrams below
and to the right.
Design Elements
li;
Mixed Use Streetside
O
7 0
o°
Sidewalk Planter
Strip
1 .
Canopy Trees
2.
Pedestrian - Scale
Lighting
3.
Landscaping
4.
On- street Parking
5.
Art and Branding
b.
Wide Sidewalks
7.
Protection
8.
Signs
9.
Accent Lights
10.
Activity
11.
Large, Street Level
Windows
Travel Lanes
40 ■ City of Eugene
South Willamette Concept Plan
1. Main Street
A mixed use main street
like Willamette needs
the broadest available
sidewalk width to provide
adequate buffering for
pedestrians from busy
traffic and sufficient space
for street trees, street
furnishings and active
shop fronts and significant
building entrances.
...................................................... ...............................
Long term vision to be updated through community discussions in
coordination with South Willamette Street Improvement Plan. See
http:// www. eugene- or.gov /SWillametteStreet
..................................................... ..............................:
2. Side Street
Commercial
Side streets with mixed
use development need
wide sidewalks, street
trees, attractive building
frontages and entrances.
3. Shopping Alley
The shopping alley is a
unique place offering
an intimate shopping,
browsing and cafe
experience with street
furnishings, pedestrian scale
lighting and smaller scaled
building elements fitting
with the narrower street
width. This street type may
include removable bollards
to allow delivery services
during certain times of the
day.
City of Eugene ■ 41
UeribFe ::.
8'- 15' 12''8• -1s'
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
Streetside Character
0
,
I
42 ■ City of Eugene
View along a mixed use street.
South Willamette Concept Plan
Design Principles
• Create a safe and inviting public realm for all
users both day and night.
• Promote best practices for parking and
access to residential buildings
• Provide for a safe and inviting street character
City of Eugene ■ 43
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
STREETSIDE CHARACTER
Residential Streetside Design Elements
In residential areas the street -side realm provides
for a transition from public space to private space
from the curb to the building or private doorway.
The elements that compose this transition are
parking that buffers street traffic, to landscaping
and street trees, wide sidewalks, front yards or
gardens and porches or stoops. Elevating entry
floors several steps above grade further defines
transition and offers privacy to the residents by
lifting windows.
Form Based Codes address the
relationship between building facades
and the public realm, the form and mass
of buildings in relation to one another
and to the street. They are used to foster
a high quality public experience and
predictable built results by using physical
form, rather than use, as the organizing
principle for the code.
O
Set -Back Sidewalk Planter Parking
Strip
10' 6.5' 5' 7'
Residential Streetside
Design Elements
Canopy Trees
Pedestrian -Scale
Lighting
Landscaping
On- Street Parking
Clear and Friendly
on Edges
Front Gardens
Porches, Stoops,
and Balconies
Vertical Separation
Eyes on Street
Building Details
Travel Lanes
44 ■ City of Eugene
South Willamette Concept Plan
4. Apartment /Condo/
Rowhouse Character
Public to private transitions
for this building type rely
on comfortable sidewalks
and defined small gardens
10' 6.5'— +_5' + 7 4
5. Row House
Transitions from the street
to row house entrances will
have a greater setback
consistent with other single
family options housing
types in the neighborhood.
An elevated first floor with
street facing stoops is often
a defining feature of a
row house neighborhood
creating a visible pattern
of entrances and privacy
for residents.
6. Single Family
Options
Like Row Houses, single
family house styles are
defined by deeper front
yards and often porches
providing privacy for
residents and space for
activity in the semi - public
front yard.
Set -Back Sidewalk
Planter Parking 1l Travel Lanes
Strip
10' _+ 5' _+ 3+ 7'
City of Eugene ■ 45
5eai.§.ik ckaraxr rwtlnP Ti4utlLarwF
IL;- -Bark Sidewalk Planter Parkirg
Strip
10' —+ 5' 3' —}— 7'—+
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
BUILDING DESIGN ELEMENTS
Introduction
The building design elements indicated on the images below
and to the right help define important features that can enhance
neighborhoods. The four development types shown illustrate the
use of materials and details to create attractive and welcoming
neighborhoods. These elements will be considered for incorporation in
design guidelines for the district.
Mixed Use Residential Elements:
1.
Height limits
2.
Horziontal and vertical elements
3.
Balconies and wlndows on street
4.
Blend of high quality materials
5.
Well - defined entrance
6.
Permanent Awnings
7.
Large Windows
i 8.
Lighting
9.
Step -back
10.
Building relationship to street
Mixed Use Commercial Elements:
1. Tall first floor
2. Permanent Awnings
3. High windows
4. Frequent and well - defined entries
5. Pedestrian scale signs
6. Hanging and potted plants
7. On- street merchandise
8. Quality paving materials
9. On- street parking
10. Street trees
11. Low windowsill height
46 ■ City of Eugene
South Willamette Concept Plan
Design Principles
• Create a safe and inviting public realm for all users both day and night
• Activate the street front at new commercial buildings
• Promote active street fronts for existing commercial buildings as a transition to the
future condition
• Promote a safe and livable character throughout residential neighborhoods
Residential Row -house
Elements:
1. Height limits
2. Interesting roof line
3. Break up mass
4. Blend of quality materials
5. Architectural details
6. Quality, accentuated windows
7. Well - defined entrance
8. Patios and windows on street
9. Semi - private space
10. High - quality landscaping
11. Direct connection to sidewalk
12. Semi - public space
�z
we
Residential Single Family Occupancy
Elements:
1. Height limits
2. Interesting and compatible roof line
3. Break up mass
4. Quality, accentuated windows
5. Balconies and windows facing street
6. High quality landscaping
7. Connection to sidewalk
8. Elevated first floor
9. Inviting porch
10. Garage behind
City of Eugene ■ 47
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
PARKS, PLAZAS, AND GREEN SPACES
Introduction
A connected network of green streets and public
spaces is a Key Concept for the South Willamette
Concept Plan. As shown on the Open Space and
Connections Map, green tree lined streets linking
public or semi - public open spaces in locations
that add value to business and social experiences
are important elements of the plan. Community
members expressed interest in a gathering space
for community events, plazas near businesses,
playground areas for short breaks while shopping,
and smaller resting and visiting locations with
benches and landscaping for chance encounters
in the neighborhood.
At the intersection of 29th Avenue and Lincoln
Street, the Willard School site provides an anchor
of open space, a portion of which is identified for
a long term park or play field on the west side of
the district.
Residents and visitors to the area benefit from
the expansive green spaces and abundant
recreational opportunities in the large Amazon
Park bordering the entire district to the east. Tree
lined streets, bio swales and landscape plantings
visually connecting to Amazon Parkway as
part of the plan can reinforce enjoyment and
connection to this relaxing environment of which
this district is a part.
48 ■ City of Eugene
South Willamette Concept Plan
Design Principles
• Create a hierarchy of inviting public and semi-
public places.
• Maximize light, sun, seasonal shade, and
available views
• Maximize visibility to and from public and
semi - public spaces
• Provide some buffer or separation from
busy streets
• Provide a clear, public "center" to the
district through public open space.
• Prioritize a neighborhood park on the old Willard
School site, if the site is redeveloped as a non -
school use Enhancing connections to Amazon
Park. Enhance the area of Amazon Park
around the community gardens for additional
public uses serving the South Willamette district.
• Promote sustainable practices throughout the
district.
• Preserve, enhance and frame views within,
to, and from the district. Promote habitat
opportunities within the district.
City of Eugene ■ 49
j
�
City of Eugene ■ 49
South Willamette Concept Plan
5. DESIGN FEATURES AND PRINCIPLES
PARKING STRATEGIES
Introduction
Both vehicular and bicycle parking are
important elements of the mixed use district and
have a significant impact on how the area is
experienced. Nearby and accessible parking will
continue to be an essential element of business
success, though as the district evolves into one
where people do more of their shopping and
other business on foot, some businesses are
anticipated to benefit from shared parking areas.
Except in the shared lots at Woodfield Station,
Southtowne Shoppes and Willamette Square,
vehicle parking is currently provided in individual
private lots associated with each business. The
Concept Plan identifies shared parking lots as
a tool to help implement the walkable district
and reduce dangerous "in and out traffic" onto
Willamette Street as patrons move from one
business to the next.
The adjacent diagram illustrates ten strategies
that provide options for nearby parking and also
support a gradual transition to development
of buildings located closer to the street,
adjacent to attractive sidewalks and supporting
easy pedestrian access between businesses.
Bicycle parking currently is provided with new
development near business entrances. To support
this area as a more pedestrian and bicycle
oriented shopping district, strategies to integrate
more bike parking into existing commercial
facilities will also need to be developed.
How will Parks, Plazas & Green Spaces and
Parking Strategies be implemented?
The Concept Plan will guide:
• Identification of opportunities for public/
private partnerships to create parks,
plazas, and green spaces
• Street tree programs
• Capital Improvement Program
• Coordination with 4j School District
• Shared parking lots and programs
• Facilitating "tuck under" and alley
parking
Tuck -under
Alley parking
50 ■ City of Eugene
Shared Lot
On- street angled parking
South Willamette Concept Plan
Design Principles
• Manage parking for the success of the district
• Provide shared parking options that support
business and promote walking between
businesses.
• Minimize visual impacts of parking while
maintain an adequate parking inventory.
• Promote best practices for parking and
access to residential buildings
IIIIIJ�IIIII
= O = v
Q
9
HIM IIII
+ + + U fO +
Street
71
1. On- street parallel
2. On- street angle
3. On alley
4. Side of building
5. Back of building
6. Shared lot
7. Tuck -under
8. Podium or structured
in building
9. Public parking
structure
10. Shared bike parking
X Front of building
City of Eugene ■ 51
F lA Nil l lJy I IVI u
South Willamette Concept Plan
6. INTENDED OUTCOMES
Introduction
The intent of the South Willamette Concept
Plan will be carried out through a variety of
implementation plans, policies, tools and action
items. The following clarify intent through specific
outcomes and inform the implementation steps.
(See Part 7 for more detail on implementation
actions.)
District -Wide
• New development promotes the vision of
the South Willamette district as a vibrant and
successful 20- minute neighborhood through
the implementation of the Concept Plan to
enhance street, sidewalk and open space
networks, support business success and
provide a greater concentration and variety
of attractive housing options.
• The district accommodates new businesses
and dwelling units, and enable the form and
density of development envisioned for each
area within the district, while contributing to
a highly livable and desirable place to live,
shop, work and play.
• New development incorporates the South
Willamette Concept Plan design principles
for both the public and private realm to the
greatest degree practicable
Building and Site Design
• New development promotes excellence in
building and site design
• New development follows the intent of
envisioned building forms, including height
limits, setbacks, stepbacks, and relationship to
streets and public spaces
• New development minimizes impacts to lower -
intensity adjacent uses in keeping with the
transition recommendations to create a well -
balanced and pleasing mix of building types
and activities across a diverse mix of intensities
and uses
• New development enlivens and supports
streets and public spaces by incorporating
active ground -level commercial uses with a
high degree of transparency and /or a high
frequency of entries with residential uses, as
well as high - quality design and amenities at
the pedestrian level
• New development supports the role of South
Willamette Street as the vital, pedestrian -
friendly commercial core of the district
• Site, building, and infrastructure design
contributes to a healthy and livable
community by following sustainable
development practices to the greatest
degree practicable
• New development implements the "heart of
the walkable district" concept through active
retail uses as well as building, street, sidewalk,
and parking design features that establish an
active, attractive, pedestrian - friendly and well -
connected commercial core for the district
• New housing development implements the
goals of the Special Area Plan for the district
by providing a mix of housing types and range
of affordability in designs that contribute to
cohesive streetside character
Transportation
• New development contributes to well -
connected, safe, convenient and attractive
use by all modes of travel throughout the
district, including walking, bicycling, transit,
and automobiles
• New development incorporates shared
parking strategies for the district through a
variety of means including shared access,
cooperation with other property owners,
partnership with the City, and parking design
and management recommendations
• Public streets includes on- street parking to the
extent possible, to support existing and new
commercial and retail uses
• Public streets are planned for construction
or re- construction with green stormwater
treatment systems to the extent feasible,
including but not limited to infiltration planters,
rain gardens, and vegetated swales
52 ■ City of Eugene
South Willamette Concept Plan
Open Space
• New development maximizes the creation of
inviting and diverse public, semi - public and
semi - private open spaces and attractive
streetscapes that make a positive contribution
to the public realm throughout the district
• New development reinforces key connections
between the district and adjacent parks
and natural areas through enhancement of
access ways and streetscapes
• The plan maintains space for a shared
community garden area as part of the
neighborhood near Amazon Parkway
• The plan supports semipublic open space
for commercial and housing uses located
adjacent to public sidewalks and near entries
to street - oriented retail, eating and drinking
establishments, and contribute to an active
public realm
Special Areas
• Future development of the Willard School Site,
if converted from school use to private use,
reflects the recommended concept for that
area as well as the goals, policies and intent
of the South Willamette Concept Plan, includ-
ing recommended street, bicycle and pedes-
trian connections and open space
City of Eugene ■ 53
South Willamette Concept Plan
7. IMPLEMENTATION PLAN
Code and Plan Amendments
The implementation phase of the project will in-
clude additional processes and an opportunity for
the community to provide input into creation of
the implementation tools. See Section 1 for further
description of the long -term function of the South
Willamette Concept Plan.
Timing
Actions will generally be undertaken in the short,
medium and long -term. Short -term actions are
those required to be complete prior to submitting
Eugene's 20 -year growth plan for adoption by the
State.
• Short -term actions generally include:
• developing a new Single Family Options
(SFO) zone, and related design guidelines
• establishing a pilot community investment
program
Medium -term actions are those generally
required for adoption of a Special Area Plan
(SAP) for the district, including:
• form -based or hybrid code and
• related design guidelines,
• plan designation changes
• zone changes
amendments to the South Willamette
Subarea Study,enabling ordinances.
Long -term actions will be completed follow-
ing adoption of the SAP, and will be carried
forward as
policy statements within the SAP
describing how to implement future
elements of the plan.
The South Willamette Concept Plan will be en-
abled by translating the content of the plan into
an adopted Special Area Plan for the district, in-
cluding a companion set of code provisions and
related plan amendments.
Code Amendments
• Develop and adopt a new zone for Single
Family Options (SFO) and Single Family
Options with Row Houses allowed (SFO-
RH) to enable recommended housing
types, including cluster cottages, courtyard
housing, town houses and row houses, in a
sensitive fashion within existing single family
neighborhoods
• Develop new zones in such a way that they
may provide a potential template for use
in other areas of town, or draw appropriate
content from similar zones such as the Walnut
Station SAZ
• Enact appropriate revisions to the Eugene
Code needed to enable new zones and
procedures
• Develop and adopt new land use code
standards based on building form through
a Special Area Zone (SAZ) reflecting the
site and building design outcomes of the
South Willamette Concept Plan, including
height limits, setbacks, stepbacks, step
downs, relationship to the street, parking
configuration and other critical features
• Include code provisions to allow car sharing
and shared parking as a pilot projects to test
the feasibility of innovative concepts
Design Guidelines
• Develop a concept for character that
supports active uses and transparent
pedestrian scaled frontages facing Willamette
Street and commercial side streets
• As part of the new code, develop a set of
clear and objective development standards
drawn from design principles recommended
in the South Willamette Concept Plan, as well
as a corresponding set of design guidelines to
be applied in a design review process
54 ■ City of Eugene
South Willamette Concept Plan
Consider the Design Excellence Principles
established by the American Institute of
Architects Southwest Oregon Chapter in the
design review process
Establish a design review process to allow
flexibility in achieving design outcomes within
the district, as an alternative to meeting clear
and objective standards
Updates to the Arterial and Collector
Street Plan include further refinement of
recommendations for street design and
character of specific elements such as street
lighting, furnishing, materials and trees
Special Area Plan
• Develop and adopt a Special Area Plan that
incorporates and enables the content of the
South Willamette Concept Plan, including
policies supporting future action items not yet
completed prior to, or as part of, adoption of
the Special Area Plan.
Plan Amendments
• Adopt revisions to the land use diagram
currently contained in the Metropolitan Area
General Plan (Metro Plan) to reflect the uses
and densities recommended in the South
Willamette Concept Plan
• Integrate recommended street typologies into
the upcoming Arterial and Street Collector
Plan (ACSP) update and /or into appropriate
Public Works Administrative Rules to ensure
future public and private improvements
consistent with recommendations
• Revise the city Right -of -Way Map as needed
to coordinate with the established build -to line
along South Willamette Street based on the
final outcome of the long -term vision for that
street
• Revise the Parks, Recreation and Open
Space Project and Priority List to include
development of a small public plaza,
approximately 1 /10 to 1/8 acre in size, in the
South Willamette core area
• Establish a public /private partnership program
to promote other pocket -sized public or
semi - public spaces; consider management
agreements that leverage public resources,
potentially in partnership with district -wide
promotional efforts
Monitoring
• Build in a periodic assessment of growth
and change in the district to determine
effectiveness of implementation plan,
• Periodically assess effectiveness of the
special area zone development standards in
facilitating desired urban form.
Community Investment Program
The Envision Eugene proposal calls for meeting
the community's need for new commercial
jobs and multi - family housing over the next
20 years inside the existing urban growth
boundary. This will be accomplished mainly
by increasing redevelopment along Eugene's
core commercial areas and key transit corridors.
Unfortunately, market conditions over the next
20 years are not expected to support the level
of redevelopment needed to meet this goal,
including approximately 1600 units of multi-
family housing. The difference between actual,
expected market conditions and those needed
to stimulate needed redevelopment is called the
"market gap."
The South Willamette area, in addition to being
a core commercial area located along a key
transit corridor, is also one of four areas - also
including downtown Eugene, the Franklin corridor,
and the south Coburg Road area - where
market conditions are expected to be closer to
supporting redevelopment than other areas of
town. However, the gap is still significant, and
little or no redevelopment is expected in these
target locations without action by the City.
Envision Eugene identifies a variety of actions
available to local government that can reduce or
close the market gap. Market - changing actions
typically aim to make redevelopment projects
more feasible by boosting the certainty and
speed of permit approval, lifting achievable rent
and lease rates (e.g. by making certain areas
more attractive for business and living), and
lowering construction and operating costs.
City of Eugene ■ 55
South Willamette Concept Plan
7. IMPLEMENTATION PLAN
Community Investment Prograr (continued)
These actions represent an investment in the
community with long -term benefits that are
necessary (i.e. the development would not occur
"but for" the investment) and /or a reasonable
exchange for certain benefits such as denser
housing and jobs in key locations (e.g. along
key transit corridors and in key commercial
areas), green building, housing affordability,
neighborhood compatibility, and design
excellence.
The community has also identified a need for
more, diverse single - family housing types including
smaller homes, secondary dwelling units (SDUs),
courtyard and cluster homes, and row houses.
This is aimed at meeting the needs of a changing
community as well as meeting future demand for
housing as efficiently as possible (i.e. reducing the
need for UGB expansion for single - family homes),
as well as, attractive housing for elders, singles
and couples. Since the market is not expected
to provide these housing types, investments are
needed to actively encourage them.
Regarding both multi - family and single - family
housing, design matters to the community. This is
especially true for larger, higher density buildings
as well as infill in existing neighborhoods. The
Envision Eugene proposal takes an approach of
aiming for "what we want" versus "what we don't
want" from future development. Investments
are an important tool to actively support "what
we do want" by creating opportunities to
influence design, rewarding design excellence,
and offsetting some of the costs of higher - quality
design.
Program Outline
The goals outlined above will be accomplished
in part through an emerging Envision Eugene
Community Investment Program. The South
Willamette area can serve as a pilot for the
program to help implement the South Willamette
Concept Plan. Although the program is still under
development, the Willamette pilot may include
the following components:
Compact Urban Development District: Help
close the market gap for redevelopment
of higher- density commercial, multifamily
and mixed use buildings with clearly -
defined public benefits through targeted
investments. Specific tools may include:
public /private partnerships; time - limited
property tax exemptions (multiple unit
property tax exemptions, or similar); system
development charge adjustments or tax -
funded exemptions; permit fee adjustments
or tax - funded exemptions; expedited permit
review; design assistance and facilitation;
public financing; and /or others.
Single Family Options Program: Stimulate
redevelopment and new development of
locally under - represented, higher- density
single family housing types such as cluster
homes, courtyard homes, and row houses
through targeted investments in suitable
areas identified through area planning.
The area of effect should include areas
specifically designated for "single family
options," including sub -areas allowing row
houses. Specific tools may include systems
development charges adjustments, deferrals
or tax - funded exemptions; permit fee
adjustments or tax - funded exemptions; design
assistance and facilitation; and /or others.
The intent of the pilot program is to stimulate
redevelopment supporting commercial jobs and
multi - family housing in target areas, to improve
the quality, function and character of future
development with an emphasis on compatibility
with existing neighborhoods. Each program
should consider clear criteria for approval of
investment benefits and means of assessing
performance during and after development.
For example, criteria could include a set of form
and design standards drawn from the South
Willamette Concept Plan, including transitions,
streetside character, and others.
56 ■ City of Eugene
South Willamette Concept Plan
The Single Family
Options Program may
utilize pre- designed
templates developed
collaboratively between
the design community
and neighbors. In
addition, programs
should promote housing
that covers a range of
unit sizes and levels of
affordability with a focus
on populations such
as retirees and singles
that are expected to
increase over the next
20 years as outlined in
the Envision Eugene
recommendations.
The pilot program
can also help test
the feasibility and
effectiveness of certain
guidelines in advance
of writing specific
code language for the
district. Some criteria
applied through the
investment program
may be incorporated
into the code as a basic
requirement, while others
may only be practical to
apply in conjunction with
public investments.
Compact Urban
Development
District
Single Family Options
Investment Area
24th Avenue
Amazon
Park
coor ,ma -m w, LTD
School District. Station
L — — — —
29th.Avenue a
a
a
29th Plate
30M Avenue III
30tH Al—
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�� 31M Avenue _
M dU
Ap is /Condos � F - -
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" °w ° °=e &= nglerzmly N ° a`" I Investment Areas
P - ic un rymvenmenr
P - I P g A eas f
pmen Places for Business & Living
r S - gle Fa 1'options -
�_ � I tment Brea I ��
The Concept Plan is conceptual in nature. The boundaries represent the study
area for the plan and may need to be adjusted as the implementation tools for the
district are developed.
City of Eugene ■ 57
South Willamette Concept Plan
7. IMPLEMENTATION PLAN
Additional Planning
South Willamette Street
• Following completion of the South Willamette
Street Improvement Plan, complete a long-
term vision for streetside character on South
Willamette Street that supports a vibrant
walking, shopping, dining and service district
with ease of access by pedestrians arriving
by all modes, and includes concepts for
convenient parking for bicycles and vehicles.
See Section 5B, Streetside Character for
information on how this project will be
integrated.
• As part of completing this vision, determine
a consistent width and uses within the public
realm between future building faces and
the future curb location on South Willamette
Street that can be implemented incrementally
over time (as properties redevelop and
funds are available to make additional street
improvements); includes establishing a build -
to line for future redevelopment over the
long -term
Other Partnerships
• Coordinate with 4j School District on future
plans for Willard School site to reflect and
support the recommendations of the
South Willamette Concept Plan, including
participation in developing criteria for a
Request for Proposals if the property is sold to
a private party
• Collaborate with the SouthTowne Business
Association (SoBA), other South Willamette
businesses and neighborhood leaders on
creating a business development plan
for the district, including branding, tenant
improvements, cooperative marketing, district
revitalization, and other efforts to build civic
identity
• As part of the branding efforts, actively
promote the "walkable district," including the
Oak shopping alley, for shopping, cafes, and
nightlife
Public Improvements
Realizing the vision through public improvements
(i.e. direct investments in infrastructure such as
streets) will require patience and consistency
over many years. Some opportunities for
improvements may arise through related
publicly- funded work, similar to the anticipated
completion of the first phase of the South
Willamette Street Improvement Plan through a
pavement preservation project. To maximize this
potential, all applicable recommendations should
be incorporated into the City of Eugene multi-
year Capital Improvement Plan. Improvements
listed as part of a multi -year, municipal capital
program also increases opportunities to leverage
funding through grants.
Other improvements may be completed by
private owners through a redevelopment project,
for example adding parking spaces, wider
sidewalks and street trees to improve the appeal
and function of a new mixed use building.
Priorities:
Priority should be placed on improvements that
overlap multiple goals, for example providing
service to multiple travel modes or improving
areas around emerging redevelopment
opportunities. Priority should also be given to
projects that support central themes of the
Concept Plan, such as improving the character
of Willamette Street or connecting the district to
nearby parks.
Project List:
Community members offered a range of ideas
for needed physical improvements to the district
supporting Concept Plan goals. The following
recommendations also include many of these
ideas:
M ulti- modal access and connections
• Design and construct the South Willamette
Street Improvement Project design concept
by 2018 as the first phase of an integrated
long -term vision for Willamette Street as a
highly walkable, safe and vibrant public realm
58 ■ City of Eugene
South Willamette Concept Plan
• Design and construct additional
improvements to Willamette Street and
adjacent commercial side streets according
to the long -term vision described in the South
Willamette Concept Plan
• Design and construct relevant components of
the Bicycle and Pedestrian Master Plan (BPMP)
within the South Willamette district
• Construct street improvements that
accommodate multi -modal pedestrian
transportation amenities such as improved
and infilled sidewalks, crosswalks, bus stops,
bicycle parking, and shared vehicle parking
• Design and construct enhancements to the
Amazon Parkway intersection at 24th and 27th
Avenue that preserve views to Amazon Park,
heighten the identity of the South Willamette
district as a unique place and encourage
access to the center of the district
• Design and construct bicycle and pedestrian
connections identified in the Concept Plan
to complete sidewalk and path networks,
utilizing sustainable design and construction
techniques where feasible
• Create a direct bicycle access from Amazon
Parkway to High Street in the vicinity of 24th
Place
• Coordinate with LTD to design and construct
amenities bringing high- capacity transit
service into the district and maximize
pedestrian and bicycle connections from
transit stations to the core of the district and
throughout the district
• Design and construct a public alley and
related amenities supporting the shopping
alley concept on Oak alley between 27th
and 28th Avenues, including designation and
management of vehicle access through the
alley
• Investigate traffic calming and mitigating
over flow traffic on Portland St. at 23rd Ave.,
Portland St. at 24th Ave. and along 27th Ave.
• Investigate access from Amazon Parkway at
23rd Ave.
Open Space
• Complete property acquisition, design,
and construction of a small public plaza,
or develop one in partnership with private
property owners, in the "heart of the walkable
district," that maximizes frontage on active
retail uses and public streets
• Partner with private property owners,
potentially through the community investment
program, to develop, or encourage the
development of, public and semi - public open
space with an emphasis on creating small
destinations along core, walkable areas
• Design and construct additional amenities on
existing park land in and around the district,
e.g. near the Amazon Community Garden, to
increase carrying capacity in service of future
district residents
• In the case of private purchase and
development of the Willard School site, secure
agreement from the developer to create
semi - public open space serving residents of
the development according to the concept
plan; alternatively, purchase property for
public open space according to the Concept
Plan; design and construct amenities
according to public input through a separate,
future process
Parking
• Design and construct at least three inter-
connected, shared parking areas within the
core of the district in partnership with district
property owners and businesses; may include
surface parking initially with the distant future
goal of adding structured parking
• Establish a shared parking program to
encourage business owners to remove
barriers, consolidate parking facilities and
access, and actively market parking options
within the district; potential partnership with
broader business development work within
the district
City of Eugene ■ 59
South Willamette Concept Plan
7. IMPLEMENTATION PLAN
ZONING
u I
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24th Avenue �— !
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Low Density Residential
o Medium Density Residential
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- - - - --
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Place
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Existing Zoning
February 2013
Existing Zoning
M Public Land
F1 Low - Density Residential
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Residential
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Commercial
Community Commercial
General Office
60 ■ City of Eugene
South Willamette Concept Plan
Woodfield
I - Station
29th Avenue
I
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v
v
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24th Avenue - -
28th Avenue
Proposed Zones
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Single Family Options
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I
Proposed Building Form
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Revised June 2013
(FBC) and Single
Family Occupancy
-- 23rd Avenue
Zone
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24th Avenue
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Woodfield
I - Station
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Proposed Zones
• Special Area Zone
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F —II_
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I
Proposed Building Form
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(FBC) and Single
Family Occupancy
Zone
/j
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Zone
• Replace R 1.5 with
new Row House zone
- - -_1Q
- Mixed Use
Apartments /Condos
LTD
Station
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Sp—AA--, I �� February,2013
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The Concept Plan is conceptual in nature. The boundaries represent the study
area for the plan and may need to be adjusted as the implementation tools for the
district are developed.
j/ / Row House Character
Required (Apts/
Condos)
// Row House Allowed
// // (Single Family Options)
Single Family Options
(Cottage Clusters,
Courtyard Housing,
Single Family De-
tached, Secondary
Dwelling, Alley Access
Lots
Building Height
Change
""" 15' Deep 3 -Story Step -
back
City of Eugene ■ 61
�I
%I
i I
Amazon
Park
//I
Proposed Zones
• Special Area Zone
Single Family Options
F —II_
• Row House
—
Proposed Building Form
• Form Based Code
(FBC) and Single
Family Occupancy
Zone
• Special Area Overlay
Zone
• Replace R 1.5 with
new Row House zone
- Mixed Use
Apartments /Condos
LTD
Station
a _ wit \
2111 P1111
—_ ` --- - - - - - 1 S 3om Avenue
1 ��
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Apartments /Condos -
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Row HOUSe Character Required S I
r%i wtsicoaao,l 1 _ �.T
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o`wll ' Ik e==o� "nu n9 a ; - :P ropose o vk
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longerused asa school 1 o•o
__.
Sp—AA--, I �� February,2013
� I -''
I I I I I I I
The Concept Plan is conceptual in nature. The boundaries represent the study
area for the plan and may need to be adjusted as the implementation tools for the
district are developed.
j/ / Row House Character
Required (Apts/
Condos)
// Row House Allowed
// // (Single Family Options)
Single Family Options
(Cottage Clusters,
Courtyard Housing,
Single Family De-
tached, Secondary
Dwelling, Alley Access
Lots
Building Height
Change
""" 15' Deep 3 -Story Step -
back
City of Eugene ■ 61
�I
%I
i I
Amazon
Park
//I
South Willamette Concept Plan
7. IMPLEMENTATION PLAN
PLAN DESIGNATIONS
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li
30M Hvenue
- Existing Metro `
P lan- Designations
February 2013 h�
Existing Metro Plan
Designations
Low - Density
Residential
Medium - Density
Residential
62 ■ City of Eugene
E:1
High- Density Residential
F-1
Commercial
Parks and Open Space
62 ■ City of Eugene
South Willamette Concept Plan
� az
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Revised June 2013 1 '
1 t
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24th Avenue
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1 11 1
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1 1 1 ° - - -
Key: Plan Designations 1 1 Key: Current Zoning
E g rvew j ••• • Community Commercial
0 Low Density esidential 1 1 -- 1
Y 1 - - � - Neighborhood Commercial
K= Medium Density Residential - -- Limited High Density Residential slth � .. -
E II High Density Residential - -- Medium Density Residential
D ® Commercial with Mixed -Use Overlay 1 -- - General Office N
Parks and Open Space 1 Remainder Currently Zoned Low
l b
Change occurs onlyifsiteis no 1 - - -r - Density Residential
longerused asa school
J t
Existing designations remain except -- _-
where new designations are shown ® 'Al � e ,�' FP _ P I r o po
P1 -an Designations
1 r I February 2013
The Concept Plan is conceptua l in nature. The boundaries represent the study
area for the plan and may need to be adjusted as the implementation tools for the
district are developed.
Proposed Metro Plan
Designations
Low Density
Residential
F-I Medium Density
Residenti al
111111 Community Commercial
==m Neighborhood Commercial
==m Limited High Density
Residential
■ Medium Density Residential
W General Office
City of Eugene ■ 63
®
High- Density Residential
Commercial
.
Parks and Open Space
111111 Community Commercial
==m Neighborhood Commercial
==m Limited High Density
Residential
■ Medium Density Residential
W General Office
City of Eugene ■ 63
South Willamette Concept Plan
APPENDIX A
ENVISION EUGENE PILLARS
The South Willamette Concept Plan implements
many of the guiding principles, or pillars, of
Envision Eugene. The following is a brief summary
of some of the key functions of the plan as they
relate to each pillar.
For more information about Envision Eugene,
please visit www.envisioneugene.org.
Provide Ample Economic Opportunities for all
Community Members
• Supports the strategy for locating new jobs
along existing corridors within the urban
growth boundary (UGB).
• Reinforces the existing business community
with balance of travel modes, continuation of
existing business and support for revitalization.
Promote Compact Urban Development and
Efficient Transportation Options
• Increases opportunities for more housing and
jobs near key transit corridors, defined as:
• "...streets that have, or are planned to have,
frequent transit service (approximately every
15 minutes or less). This frequent transit service
is often accompanied by nearby amenities
such as parks, commercial attractions or
employment centers, and higher density
housing that enable shorter trips and less
reliance on the automobile."
• Plans for more compact urban development,
including housing and commercial uses, on
key transit corridors.
Uses Area Planning as a key strategy to meet
multiple interacting goals. This pilot project
explores important concepts of area planning,
including creating a clear vision for compact
development and livable community that also
allows for flexibility; gradual implementation; and
new tools to ensure compatible design.
• Envision Eugene describes how "Area
Planning considers all the features, natural
and built, of special places along key transit
corridors and in core commercial centers, to
create a vision to foster vital and sustainable
redevelopment in areas with the potential
to become active centers for living and
working."
Implements the goals of Opportunity Siting
through the use of the visioning process to
identify good places for denser housing
supported through the community process of
area planning.
Implements the goals of Infill Compatibility
Standards by designing for transitions between
buildings and uses. Plans for codes and zones
that implement design based redevelopment,
enhancing the district as a long term
stable, attractively landscaped, livable
neighborhood.
Urban design provides for compatible building
transitions
Make compact development easier with
Community Investment Program of assistance
and incentives.
Creation of concept plan for South Willamette
Street to better serve all travel modes, support
transit and set stage for future vision.
Protect, Repair and Enhance Neighborhood
Livability
• Community participation in developing plan
and urban design concept
• Urban design provides for compatible building
transitions
• Provide greater access to parks for multiple
family housing residents by locating denser
housing close to Amazon Park.
Provide Housing Affordable to All Income Levels
• Plan emphasizes compact and affordable
housing
• Identification of new zones to implement single
housing options, such as cluster, courtyard
and row houses and removing code barriers
to developing these housing types.
64 ■ City of Eugene
South Willamette Concept Plan
Plan for Climate Change and Energy Resiliency
• Reinforces existing 20 minute neighborhood
where people can meet most of their daily
needs within a 20 minute walk. Sets the stage
for access by more people using different
modes
• Plans for implementation of the Pedestrian
Bicycle Master Plan with inclusion of improved
bicycle and pedestrian connections.
• Sets long term vision for Willamette Street
through the "South Willamette Street
Improvement Project.
• Creates street typologies that emphasize a
safe, inviting walkable public realm, with wide
sidewalks, landscaping and buildings, rather
than parking lots, located near the sidewalk.
Provide for Adaptable, Flexible and Collaborative
Implementation
• Gradual implementation through market
forces and Community Investment Plan
Protect, Restore and Enhance Natural Resources
• Protects farm and forest land by implementing
strategy for more jobs and housing within the
urban growth boundary
• Enhances landscaping and urban tree cover
promoting health and livability
City of Eugene ■ 65
South Willamette Concept Plan
APPENDIX B
DISTRICT SECTIONS
Introduction
District Sections illustrate the potential future
long term build out of the district within the new
building "envelopes" (including heights and
setbacks) and codes that will be created to
guide new development. Shown in each section
is a grey shaded area that represents existing
building heights allowed by current codes, as well
as a blue dashed line that represents building
envelopes in the Concept Plan. In many cases,
such as the mixed use areas, the building height
allowed would be much reduced from the
existing permitted 120 feet.
Currently allowed
I I
New maximum
1
t I
_ Building Envelope
.e�op
Section through 24th, West of Amazon Pkwy.
Looking West
24th Avenue
This cross section illustrates what the district
could look like near 24th Avenue, looking west
near Amazon Parkway. It demonstrates taller
residential buildings close to this busier access
street, parking located under buildings, taking
access from alleys where possible, and stepped
back building forms that offer interest, views from
the buildings and views between buildings. The
building envelope for apartments /condos on
24th Avenue is sloped down toward the single
family options area on 24th Place to provide a
transition to buildings such as courtyard houses
and cottage clusters.
---------
D s
I I o
1 30'+ roof Slope
77�
I I
I I i
I NI
r
C ®ur rd Clusters 24thAly.
24th PI. Courtyard Clusters 12T,htofW,
S ection BB 50'Right of Way
50'setbackfrom property line
N -S Section through 24th Avenue, W. of Amazon
Single Family Options
1
Condos
15'stepback
Parkway
24th
65'Righ
66 ■ City of Eugene
South Willamette Concept Plan
-------- - - - - Q r --------------- i
I L
0 00 I 0 0 0 0 0 0 0
0 DD '
o ❑o❑
cents/ Condos 24th Ave Apartments
65' Right of Way
E 15'stepback 15'stepback
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tents/ Condos 23rd Aly. Apartments/ Condos
12'Right aF�Yo
15'stepba�k L'—pWI 1 tpb
Apartments /Condos
23rd Ave.
66' Right of Way
�r --------- � Q - -------
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Apartments / Condo Offices
15'stepback 15'stepback ® N
Draft for February 2013, Not to Scale
City of Eugene ■ 67
South Willamette Concept Plan
APPENDIX 6
DISTRICT SECTIONS
27th Avenue
This cross section looks north and cuts east- west
through the "Heart of the Walkable District" and
the shopping alley. The drawing illustrates how
these concepts are supported by building shape,
position and envelopes. This section clearly shows
the existing allowed height of 120 feet in the
shadowed area and the much reduced proposed
heights. Buildings up to five stories are shown
along Willamette Street, the busy mixed use street,
with a limit to three stories along the street edge
to maintain light and frame views. Similarly the
shopping alley, "Oak Alley," is framed by mixed
use buildings that step back from the alley.
Apartments /Condos are shown between Oak and
High Streets with an example of a building type for
small apartments over garages facing High Alley
mH Currently allowed
m m
New maximum
L�
Building Envelope
lull
Section through 2Ah Ave.
O : ______________________________
i
I �
Portland Street
60'righl f -way „ k
Section CC
E -W Section near 27th Avenue
Q
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Willamette Alley
Apartments /Condos
D
Willamette Street
60',ighld way
isrn�n is p
tft
68 ■ City of Eugene
South Willamette Concept Plan
OS r ------------------------ 1
1
1 1
1 1
1 1
1 1
1 ;
ex V
IL
1
1 1
1 1
1 —
15'stepback 25'stepback
O I — — — — — — — — — — — — — — — — — — — — — — — — — — 7
1 1
1 1
1 1
Ur — — — — — — — — —-
1
1
1
1
t • u
Oak Alley
12'right -d -way 25'stepback 15'stepback
Apartments /Condos
Draft for February 2013, Not to Scale
Open Space
City of Eugene ■ 69
South Willamette Concept Plan
APPENDIX 6
DISTRICT SECTIONS
28th Avenue
This north - facing section cuts east -west
through Woodfield Station, Oak Street and
residential areas just south of 28th Avenue.
Though Woodfield Station has been recently
redeveloped, allowed heights are currently 120
feet. The future scenario for the area includes
buildings between four and seven stories, with
five stories facing Willamette Street, and four
stories facing the Willard School property and
College Hill. All edges of these buildings would
have a three story tall step back adjacent to the
perimeter of the property. Buildings could step
up to a seven story height in the middle of the
property. The right side of the section illustrates up
to four story development along Oak Street, again
with three story step backs from the street, as well
as step -downs to adjacent three story row house
and single family houses with options for cluster
cottages and courtyard housing.
7 _______—Currently allowed
-�
New maximum
Building Envelope
oa000
Section through 26th Ave.
�ooni� warcn
Ak
Woodfield Sbtio Area
Section DD L_
E -W Section near 28th Avenue
_____ __ ___ __ _ ___ e_____ --
Willamette Street
60'right -of -way
- - - - c
J��J Oak Street
Wright-.-_
Mixed Use
70 ■ City of Eugene
South Willamette Concept Plan
-- - - - - - - v
i - - - - - - --
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Willamette Street
60' rig ht -of -way
15'stepback 15'stepback
0 .---------------
). � - ,O ®:--------------------------
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Pearl Street
50 'right- of-way
singte Family t ons -Row Hvise
-- - - - - - - - - ; 3 +R- f51,
1
" H h Street
�g ee
40'right-of—y
1 N
Draft fro February 2013, Not
to Scale
Single Family Options
City of Eugene ■ 71
South Willamette Concept Plan
APPENDIX 6
DISTRICT SECTIONS
29th Avenue
This cross section is a view to the west cutting
through 29th Avenue near Amazon Parkway.
Illustrated is a long term vision for row house
character apartment and condo buildings lining
29th Avenue with multiple doorways facing the
street. Dashed lines indicate building envelops
that would require step downs to adjacent
single family options development. On the left,
or south side of 29th Avenue, is an example of
an apartment or condo building sloping down
to adjacent one or two story houses. Illustrated
on the north side of the street is an apartment
building covering two lots and stepping down to
courtyard style houses.
The water color image is viewed from along 29th
Avenue toward Amazon Park, illustrating the
experience of walking along the street past a
pattern of trees, doorways and semi - private front
yards and entry porches.
I ------
EL Currently allowed
MI I
� N ° ; -- 4— New maximum
LJ LL] p I
1 I
d0 Building Envelope
Section through 29th @ High St.
Looking West
-- — ---------
30'+ Roof Slope
�= ----— 3
-- ------- ------
- - - - -I r--------- - - - - - i
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29th Ave.
Section AA
o�i h aa;a,e tm
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60 ' Ri ht of Wa
9 y
Avenue
N -S Section through 29th
Single Family Options
Apartments /Condos
72 ■ City of Eugene
South Willamette Concept Plan
29th Ave.
Only when adjacent to 60 Right of Way
single family houses
30'+ Roof Slope
4 N
Draft for February 2013, Not to Scale
Single Family Options
City of Eugene ■ 73
South Willamette Concept Plan
APPENDIX C
DESIGN PRINCIPLES AND GUIDELINES
Connections and Open Space
Create an attractive, unified and memorable
character throughout the district
Define the district through gateways and
special features at important locations, for
example through:
0 Special paving patterns or
materials along important streets or
at key intersections
0 Specimen trees, e.g. paired across
gateway intersections
0 Architectural features such as turret
corners and towers
0 Public spaces such as mini - plazas
at corners
0 Special elements such as art, water
features or lighting
Identify areas for special attention to design
and architectural detail
Establish standards to promote consistency
throughout the district, for example:
0 Building standards
0 Street standards
0 Standards for furnishing, paving,
landscaping and /or other unifying
elements in public areas
Provide for a variety of interconnected public
spaces for gathering, events, recreation, and
commerce
Define pathways through the district that
connect special streets, public spaces,
commercial areas, services and activity centers
such as schools
Places for Business and Living
• Define the district through consistent and
attractive building forms, for example through:
• Setbacks and /or build -to lines to establish
a consistent relationship of buildings to the
street
• Height limitations, setbacks and step -backs
• Consistency of horizontal elements through
adjacent buildings
• Well- proportioned buildings with pleasant
massing and composition
0 Break up large masses with
protrusions and change of
materials and /or color
Well- defined entries facing the street or
public spaces
• Interesting roof lines that create an identifiable
skyline
• Define the district through consistent and
attractive building forms, for example through
Setbacks and /or build -to lines to establish
a consistent relationship of buildings to the
street
Height limitations, setbacks and step -
backs
• Consistency of horizontal elements
through adjacent buildings
• Well- proportioned buildings with pleasant
massing and composition
0 Break up large masses with
protrusions and change of
materials and /or color
• Well- defined entries facing the street or
public spaces
• Interesting roof lines that create an
identifiable skyline
• Minimize impacts of new development on
existing residential uses.
• Create a clear transition from public to private
space along residential streets
• Use building form transitions to blend
between business and living sections of the
neighborhood
• Create gradual transitions from buildings and
uses of greater intensity and volume to lesser
intensity and volume
• Promote a safe and livable character
throughout residential neighborhoods
Minimize impacts of new development on
existing residential uses through transitions
at the edge between higher intensity
uses and properties with lower intensity
residential uses, including:
0 Reduced building height, for
example through height limits and/
or sloped setbacks
0 Increased interior yard setbacks
used for open space requirements
or parking
74 ■ City of Eugene
South Willamette Concept Plan
0 Screening of building mass and
windows using trees, shrubs and
hedges, and /or walls, fences or
decorative barriers
0 Placement, size, type and selective
screening of windows to protect
privacy of adjacent yards and
buildings
0 Break up large building masses
through horizontal and vertical
units, changes of materials and /or
color for vertical units and lower,
middle and upper floors
Building Design Elements
• Create a safe and inviting public realm for all
users both day and night
• Increase pedestrian, bike and vehicular
safety through improved multi -modal
street design (see "Street Design &
Transportation ")
• Provide abundant, attractive pedestrian -
scale lighting using lamps, bollards,
accent lighting as well as opportunities
for event or seasonal lighting (e.g. tree
lighting, suspended overhead lighting,
and up- lighting)
• Provide windows, balconies and other
opportunities for natural observation
facing streets and public spaces
• Foster a mix of activities during different
times of day, e.g. a mix of civic, office,
retail, restaurant and nightlife
• Use high quality materials and attractive
details to engender pride of place and
positive uses
Activate the street front at commercial
buildings, for example through:
• Continuous building fapade along the
street edge; minimizing gaps
0 Promote some variation to allow
complementary uses (see below)
• Abundant retail uses (vs. office use) along
designated "active" streets
• Transparent and inviting storefronts and
street -level windows
0 Large, transparent window areas
0 Transom or clerestory windows Low
window sills
0 Minimize blank walls
0 Frequent, inviting doorways and
entrances
0 Tall first floor
Permanent awnings to provide cover for
pedestrians and window - shoppers
Space in front of commercial buildings for
cafe seating, informal seating, outdoor
merchandizing, landscaping, potted
plants, and seasonal decor.
Semi- public areas such as courtyards or
small plazas that are well integrated into
building design and retail storefronts
• Semi- private areas such as courtyards and
open -air foyers for residential entries
• Well- defined edges through decorative
barriers, seat walls, landscaping or other
enhancing features
• Architectural interest and high - quality
materials for the first two stories of building
height facing the street, for example:
0 Pedestrian -scale building
lighting and accent lighting that
contributes to the activity and
character of the street
0 High - quality, deeply inset or
accentuated doors and windows
with articulated edges
0 Permanent foundation materials
such as cut stone, masonry or
finished concrete
0 Distinctive and harmonious
materials and colors
0 Architectural details
0 Art
Promote active street fronts for existing
commercial buildings as a transition to the
future condition, for example through:
• Creative, temporary or semi - permanent
re -use or multiple -use of spaces such as
building fronts, parking lots and alleys, for
example outdoor seating, food carts, and
events
• Safe, attractive paths from storefronts to
existing parking areas and public sidewalk
• Retrofit landscaping and rain gardens in
parking areas
City of Eugene ■ 75
South Willamette Concept Plan
APPENDIX C
DESIGN PRINCIPLES AND GUIDELINES
Building Design Elements (continued)
Create a clear transition from public to
private space along residential streets, for
example through:
0 Demarcation of front yard space
with low (30 ") hedges, walls,
decorative fences and /or barriers
0 Stoops, porches entries facing the
street and clearly connected to
the public sidewalk
0 Pedestrian -scale entry lighting on
and near buildings
High - quality, detailed landscaping along
front entries and public
Promote best practices for parking and
access to residential buildings, such as:
0 Shared driveways
0 On -alley parking and garages
0 Multiple -use parking or access
areas that contribute to the
appearance and function of the
site
0 Minimal, permeable and /or
decorative paving
0 Car sharing programs, and
designated car sharing parking
spaces
Provide for a safe and inviting street
character, including:
0 Set -back sidewalks in widths
appropriate to uses Street trees
and landscaping separating
sidewalk from street; plant species
should be of similar character
along key streets to create a
unified feel Clearly - defined
crosswalks using a change of
materials and raised when possible
0 Unified street lights and pedestrian -
scale lighting
0 Unified street furnishings such
as benches, trash receptacles,
drinking fountains
0 High - quality signage
Parks, Plazas, and Green Spaces
Create a hierarchy of inviting public and semi-
public places, for example through:
Public or semi - public plazas, courtyards,
outdoor merchandising or seating areas,
and paseos
0 Design the size and shape of
spaces for comfortable proportions
0 Orient and design spaces to
maximize light, sun, seasonal
shade, and available views
0 Maximize visibility to and from
public and semi - public spaces
0 Provide some buffer or separation
from busy streets
0 Use high - quality materials,
including paving, furnishing
and lighting Define semi - public
spaces through clear edges such
as changes in paving pattern,
bollards, seat walls, decorative
barriers, or planting
0 Provide a variety of spaces for
both informal and formal gathering
of individuals, small groups and
large groups
0 Provide a clear, public "center"
to the district through public open
space as opportunities arise
Neighborhood park on the old Willard
School site, if the site is redeveloped as a
non - school use
0 Maximize frontage on public
streets
• Maximize visibility from adjacent buildings,
for example through balconies, windows
and entries overlooking the park
• Enhancing connections to Amazon Park,
for example through new crosswalks and
signals
• Enhancing the area of Amazon Park
around the community gardens for
additional public uses serving the South
Willamette district
76 ■ City of Eugene
South Willamette Concept Plan
0 Preserve, enhance and frame
views within, to, and from the
district, for example views of
Spencer Butte, Amazon Park,
College Hill, and the South Hills
(east and south)
0 Green roofs
Promote habitat opportunities within the
district, for example through:
0 Large canopy trees
0 Native trees and shrubs
0 Structures and gardens for wildlife,
such as bird houses, bat boxes,
bee hives and butterfly gardens
0 Preserving or creating small,
inter - connected natural areas in
landscaping and public spaces
Promote sustainable practices throughout
the district, for example:
0 Rain gardens and other green
stormwater infrastructure
0 Permeable paving
Parkina Stratealies
• Manage parking for the success of the district,
for example through:
• Transitioning away from parking between
the building and street
• Creating side, rear, alley, tuck - under,
podium and structured parking
• Shared parking strategies, including:
0 Sharing of parking areas between
multiple businesses or housing
through leases, collective
ownership or other agreements
(both short- and long -term)
0 Additional on- street parking
• Safe, convenient and attractive
alternatives to driving throughout the
district
• Safe, green paths from vehicle areas to
pedestrian areas
• Trees, landscaping and low barriers
to separate and soften parking areas
adjacent to sidewalks
• shared visible or protected bike parking
Provide shared parking options that support
business and promote walking between
businesses.
Minimize visual impacts of parking while
maintain an adequate parking inventory.
Promote best practices for parking and access
to residential buildings
Street Typologies
• Establish a clear hierarchy of attractive and
recognizable street types
• Provide for gradual change to desired, future
street types, for example through:
0 Phased implementation
0 Thresholds and triggers that allow
current uses to continue
• Provide for safe and convenient multi -modal
travel throughout the district, including:
0 Emphasis on pedestrian comfort,
safety, and a pleasant walking
experience
Facilities supporting daily bike
travel, such as bike lanes, cycle
tracks, bike boxes, and adequate
bike parking
Convenient access to transit,
including accommodating transit
facilities within the travel way as
well as the street edge
City of Eugene ■ 77
South Willamette Concept Plan
APPENDIX D
STREET TYPOLOGIES
These street studies were developed to inform
the Streetside Character diagrams. Further
development of the street typologies will be
undertaken as part of the form based code. The
Street Typologies are also the bases for a library
of street types to be developed and coordinated
with the Arterial and Collector Street Plan for use
in this and future area planning studies.
Main street edge (Willamette Street design to
be determined pending completion of South
Willamette Street Transportation Improvement
Project. Design to be updated when project is
complete.)
-
------- - - - - - - - - I 0000000000000000 - -- -
60' R.O.W. - Minor Arterial
Commercial /Mixed -Use
Willamette Street
,x.
Commercial Mixed Use
• Side commercial street
• Residential streets (Single Family Options, Single
Family Options with Row house, Apartment and
Condos)
• Shopping Alley
Conceptual street typologies to be further
refined for use in creating long term visions in
this and other area plans.
I
I I
- - -' 00000000
R
I
I
-)I
a.avi. k
50' R.O.W.
Side - Street Commercial /Mixed -Use
24th Place, 25th Ave., 26th Ave., Oak St.
i
Side Street Commercial Mixed -Use
78 ■ City of Eugene
South Willamette Concept Plan
Design Principles
• Establish a clear hierarchy of attractive
and recognizable street types
• Provide for gradual change to desired,
future street types
• Provide for safe and convenient multi -
modal travel throughout the district
g
------- - - - - -- ❑
12' R.O.W. Shopping Alley
Commecial - Oak Alley
A
Shopping Alley
' ® I
I a I
- - - - - - -- 000000000000000000 ---------- - - - - --
1,.J
60' R.O.W.
Residential - High- Density /Multi - Family
a�
Residential High Density Multi Family
City of Eugene ■ 79
South Willamette Concept Plan
APPENDIX D
STREET TYPOLOGIES
'syy na soo
s,oge k
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a ]. 1 Pa
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Seo
Baok Walk
Parklny
Salk SeMBaok
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Tr. I ParvJng
Rowhouse on Pearl
80 ■ City of Eugene
South Willamette Concept Plan
APPENDIX E
Project Web Links
Project Website:
www.eugene - or.gov /SWillamette
Workshop presentations:
http://www.eugene-or.gov/index.aspx?NID=l 256
Workshop reports:
http://www.eugene-or.gov/index.aspx?NID=2041
UO Design Studio Summary
http://www.eugene-or.gov/index.aspx?NID=2041
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High Street at Amazon Parkway Option A High Street at Amazon Parkway Option B
City of Eugene ■ 81
Eugene Planning Commission
South Willamette Concept Plan
Motion
April 22, 2013