Planning Commission

AGENDA Meeting Location: Sloat Room—Atrium Building Phone: 541-682-5481 99 W. 10th Avenue www.eugene-or.gov/pc Eugene, OR 97401 The Eugene Planning Commission welcomes your interest in these agenda items. Feel free to come and go as you please at any of the meetings. This meeting location is wheelchair-accessible. For the hearing impaired, FM assistive-listening devices are available or an interpreter can be provided with 48 hours notice prior to the meeting. Spanish-language interpretation will also be provided with 48 hours notice. To arrange for these services, contact the Planning Division at 541-682-5675. MONDAY, JULY 8, 2013 – REGULAR MEETING (11:30 a.m. to 1:30 p.m.) 11:30 a.m. I. PUBLIC COMMENT The Planning Commission reserves 10 minutes at the beginning of this meeting for public comment. The public may comment on any matter, except for items scheduled for public hearing or public hearing items for which the record has already closed. Generally, the time limit for public comment is three minutes; however, the Planning Commission reserves the option to reduce the time allowed each speaker based on the number of people requesting to speak. 11:40 a.m. II. ENVISION EUGENE: SINGLE FAMILY CODE AMENDMENTS Staff: Alissa Hansen, 541-682-5508 12:25 p.m. III. ENVISION EUGENE: HOUSING RE-DESIGNATIONS Staff: Heather O’Donnell, 541-682-5488 Terri Harding, 541-682-5635 1:15 p.m. IV. A. Other Items from Staff B. Other Items from Commission C. Learning: How are we doing? Commissioners: Steven Baker; John Barofsky; Jonathan Belcher; Rick Duncan; John Jaworski (Vice- Chair); Jeffery Mills; William Randall (Chair)  AGENDA ITEM SUMMARY July 8, 2013 To: Eugene Planning Commission From: Heather O’Donnell & Terri Harding, City of Eugene Planning Division Subject: Envision Eugene Implementation: Housing Re‐designation ISSUE STATEMENT This work session is an opportunity to update the Planning Commission on potential re- designation sites to provide more housing capacity inside the UGB. BACKGROUND Two primary goals of the Envision Eugene project are to: 1) determine how Eugene will accommodate the next 20 years of growth in our community, as required by state law, and 2) create a future that is livable, sustainable, beautiful and prosperous. The City Manager’s March 2012 Envision Eugene recommendation includes several strategies and actions to implement the Envision Eugene vision. One of the strategies to accommodate more housing inside the Urban Growth Boundary (UGB) is to re‐designate some areas that may be more suited to a different land use than they are currently designated. Land re-designated for housing reduces the amount of land needed for UGB expansion (for single-family housing) and helps accommodate multi-family housing on lands inside the current UGB. The draft recommendation identified several areas for study. Since then, additional areas have also been studied as shown on the attached map (Attachment A). Staff has reached out to these property owners, heard concerns and comments, and seeks Planning Commission feedback on next steps. Staff observations and updates for each site, along with what we heard from community members, will be presented at the meeting. This information is also summarized in Attachment B. Medium Density Residential (MDR) to Low Density Residential (LDR) The draft recommendation identified three sites that are currently designated Medium Density Residential (typically for multi-family housing) but that might be better suited for Low Density Residential (typically for single-family housing) given their development constraints or their distance to commercial services (grocery, retail, restaurants) and transit. • Crow Road Study Area • Ayres Road Site • Gilham Road Site PC Agenda - Page 1 Parks & Open Space (POS) to Low Density Residential In recent years, some private property owners that own Parks & Open Space designated land have indicated that they don’t need all of their land for POS type uses (e.g. cemeteries, golf courses). In the city’s land supply analysis, no housing capacity is assigned to POS land because (with some exceptions) housing is not permitted on POS land. Since the draft recommendation, staff has studied larger privately owned POS sites and found two additional sites where the property owner has indicated they would like to use a portion of their site for housing. A designation of LDR would enable different types of low density housing allowed by the city’s R- 1 zone to occur there in the future and would also allow the city to count that portion of the land towards the city’s residential land need, reducing the need for Urban Growth Boundary expansion. • Irving Road Site (former Eagles Lodge Site) • Willamette Street/Rest-Haven Site Government & Education (G&E) to Medium Density Residential (MDR) The draft recommendation identified one site that is currently designated Government & Education but that might be better suited for Medium Density Residential. • 13th Avenue/former Naval Reserve site NEXT STEPS Following Planning Commission discussion and direction, staff will begin preparing a re- designation/zone change package for the adoption process. The process is anticipated to begin with the first public hearing with the Planning Commission in September, followed by Council discussion and a second public hearing later in the fall. ATTACHMENTS A. Land for More Homes- Residential Re-designation Map B. Re-Designation Site Summaries - What We Heard C. Crow Road Concept Map D. Ayres Road and Gilham Road Sites Map E. Irving Road/Eagles Site Map F. Willamette Street/Rest-Haven Site Map G. West 13th/Naval Reserve Site Map FOR MORE INFORMATION Heather O’Donnell at 541‐682‐5488 or heather.m.odonnell@ci.eugene.or.us Terri Harding at 541-682-5635 or terri.l.harding@ci.eugene.or.us Visit www.envisioneugene.org > implementation projects > residential re-designation. PC Agenda - Page 2  Beacon Dr. Rd. River Eugene Airport Ayers Road Site 9 y. 9 Hw Irvington Dr. Gilham Irving Rd./ Road Site Eagles Site Clear Lake Rd. Irving Rd. Green Hill Rd. Beltline River Beltline Barger Dr. Rd. . Hwy Delt a Interstate 5 Coburg Rd. NW Ex Royal Ave. es Hw pr y. 9 sw 9 ay Roosevelt Dr. I-105/Hwy. 126 Beltline U of O Athletics W. 6th Ave. W. 11th Ave. Down- town Fran klin B lvd. Lane County W. 18th Ave. Fairgrounds University of Oregon West 13th/ Crow Road Naval Reserve Chambers St. Study Area Site S. Willamette St. E. 30 Key Concepts th A ve. Bailey Hill Road Amazo Areas to Re-designate in part from n Parkw Multi-Family to Single-Family Homes ay LCC Campus Inters tate 5 Former Naval Reserve site to re-designate to a multi-family land use designation Willamette St./ Privately owned areas to re-designate from parks and open space to single-family homes Rest-Haven Site Areas for Additional Multi-Family Homes: Downtown Core Commercial Areas Study Areas along Key Transit Corridors Additional re-designation opportunities may be identified through area planning Legend NO R T H Envision Eugene 0 miles 1 mile Urban Growth Boundary Existing Multi-Family Areas Freeway Existing Single-Family Areas Major Road Key Institutions Land for Homes: Railroad Farms and Fields Water Bodies / Rivers Hills and Forest Residential Re-designation • Map is not tax lot specific and is for illustrative purposes only. • See Technical Summaries for additional information. www.EnvisionEugene.org May 28, 2013 PC Agenda - Page 3  Attachment B Housing Re-designation Site Summaries Medium Density Residential (MDR) to Low Density Residential (LDR) The draft recommendation identified three sites that are currently designated Medium Density Residential (typically for multi-family housing) but that might be better suited for Low Density Residential (typically for single-family housing) given their development constraints or their distance to commercial services (grocery, retail, restaurants) and transit. Crow Road Study Area- This site is around Crow Road, south of W.11th and east of Greenhill Road. It is about 270 acres designated MDR and zoned R-1 Low Density Residential. Given the distance of this area to commercial services and transit, as well as transportation constraints, the initial suggestion is to re- designate the majority of the site to LDR with an MDR and Commercial hub near the existing commercial development on W. 11th (Attachment C). Three public workshops, accompanying questionnaires, and phone calls were conducted with property owners and residents in 2012 regarding a draft land use concept and potential development standards for the area. More recently, staff has re-initiated conversations to confirm feedback. At this point, the feedback is generally summarized as:  General agreement for re-designation of the majority of the site to LDR  Explore relocating some of the remaining MDR and/or Commercial designation from the middle of the study area to the east side of the study area along W.11th Avenue  Concern about making existing uses non-conforming if the proposed Commercial designation area is simultaneously re-zoned to C-2 Community Commercial  General agreement that the development standards should be explored in more detail later Feedback from the Planning Commission on the re-designation plan is needed to determine what configuration to forward to a public hearing. Ayres Road site- This site is on the northeast corner of Ayres Road and North Delta Hwy (Attachment D). The property owner has recently requested that this site be removed from the potential re-designation list. Gilham Road site- This site is just north of the northwest corner of Gilham and Ayres Roads (Attachment D). The site is designated MDR and zoned R-2 and C-1, and is surrounded by LDR except to the south which is designated Commercial and LDR. The initial suggestion was to re-designate the majority of the site to LDR with a small portion remaining MDR. The Willakenzie Area Plan directs commercial in this area to be separated from Gilham Road by MDR, which is why the commercial zoning on this site and the Commercial designation on the adjacent property to the south are located in the middle of the block. Since the Willakenzie Area Plan adoption, the property across Ayres has developed with single- family housing and a high wall along its entire frontage. Further, the viability of any future commercial area may be more likely if it were to have access and visibility along both Ayres and Gilham Roads. Since both this site and the adjacent southern property are vacant, there is an opportunity for reconfiguration of future land uses. A more appropriate land use configuration may include re- designating & rezoning part of the site LDR and keeping half of the site MDR. The property owner PC Agenda - Page 4 indicates a preference for re-designation and zoning to as much LDR as possible. Staff is communicating with the property owner on these options and seeks Planning Commission input on planned next steps. Parks & Open Space (POS) to Low Density Residential In the recent years, some private property owners that own Parks & Open Space designated land have indicated that they don’t need all of their land for POS type uses (e.g. cemeteries, golf courses). In the city’s land supply analysis, no housing capacity is assigned to POS land because (with some exceptions) housing is not permitted on POS land. Since the draft recommendation, staff has studied larger privately owned POS sites and found two additional sites where the property owner has indicated they would like to use a portion of their site for housing. A designation of LDR would enable different types of low density housing allowed by the city’s R-1 zone to occur there in the future and would also allow the city to count that portion of the land towards the city’s residential land need, reducing the need for Urban Growth Boundary expansion. Irving Road Site (former Eagles Lodge site)- Staff sent letters to adjacent property owners regarding the potential re-designation of approximately 11 acres of this 17 acre site at the northeast corner of Irving Road and Northwest Expressway (Attachment E). The site is designated POS, zoned R-1 Low Density Residential and is abutting LDR on all sides except across Northwest Expressway (which is Industrial). The site consists of the former Eagles Lodge building and a small golf course. The new owners, Westside Baptist Church, have indicated that they do not need the golf course and would like to sell it for development as low density residential housing. A few adjacent property owners have raised concerns about future development of an open space and wildlife habitat area and the type of housing that might be built in the future. Open space and natural resources are addressed in a couple ways in the city, including land acquisition and development standards. Parks and Open Space staff indicates that additional park land is not an identified need for this area and the 2006 parks bond did not include money to purchase parks in this area. If the property is re-designated to Low Density Residential, the most common type of development seen on a site this size is a subdivision for single-family homes, similar to the adjacent neighborhood. The subdivision process requires the developer to address tree preservation and stream and wetland requirements (although there are no protected streams or wetlands identified). The type of housing that may built is not addressed as part of a re-designation. Any R-1 land use may be allowed in the future, subject to applicable standards. The most typical type of housing seen in R-1 is single-family detached. Staff seeks Planning Commission input on forwarding the re-designation proposal to public hearing for the 11 acre golf course portion of the property. Additional communication with neighbors is also planned. Willamette Street/Rest-Haven site- Staff sent letters and held two meetings the last week of June to discuss the potential re-designation of approximately 47 acres of the Rest-Haven property at 39th and Willamette (Attachment F). The property is currently zoned R-1 Low Density Residential and is subject to an approved Conditional Use Permit (CUP) for cemetery uses. A condition of approval of the CUP is to maintain a 75-foot buffer along the west and south property lines where the Rest-Haven property abuts existing homes. A subsequent development application, Cathedral Park, proposed Controlled Income PC Agenda - Page 5 and Rent housing within the buffer area; this application is still on hold with the city, but could be activated at the owner’s request. Staff completed a site walkthrough with a property owner representative and then with owners of three adjacent properties on Brae Burn Drive. Twenty five neighbors attended one of the meetings, and several more sent emails or called staff. Neighbors raised issues related to future tree removal and/or development on the Rest-Haven property, including erosion, wind throw, drainage, natural resource impacts to the creek and wildlife, and visual impacts from new development. These concerns pertain for the most part to any future development within the buffer area. Three neighbors expressed support for allowing housing on the property if transportation and access considerations are properly addressed. Staff is working with the property owners to determine whether an agreement can be reached to retain the buffer as future development proposals move forward under an LDR designation. Staff seeks Planning Commission input on this next step. Government & Education (G&E) to Medium Density Residential (MDR) The draft recommendation identified one site that is currently designated Government & Education but that might be better suited for Medium Density Residential. 13th Avenue/former Naval Reserve site- This site is the former Naval Reserve property on W. 13th Avenue and Chambers Street (Attachment G), which is owned by the City of Eugene. The site is designated G&E and zoned PL Public Land and is abutting G&E designated land, with multi-family residential development across 13th Avenue. The long term plan for the site is for the city to work with an affordable housing developer. The City’s Community Development staff confirms that it is still preferable for the site to be re-designated to MDR and rezoned to the corresponding R-2 Medium Density Residential zone. PC Agenda - Page 6  Attachment C Commercial Area Medium Density Residential Key Commercial Medium Density Residential Majority of Study Area: Low Density Residential with Single Family Options Existing Protected Wetlands & Buffers Stream UGB Study Area for Re-designation (Interface with adjacent properties is DRAFT Concept 11/28/12 considered) 500’ + Elevation (Contributions to this concept by Rowell Brokaw Architects and Schimer & Satre Group) PC Agenda - Page 7 Residential Re-designation - North Eugene Study Areas Attachment D Eugene a y Gilham Rd o nd W r P o Mir r Creekside Way Inside Eugene UGB Nelson Ln ew Dr Gilham Rd N Delta Hwy Vi o w ad A ve Me mso n ri Walton Ln Waterbrook Way C Torr Ave Don Juan Ave D r inte Ashbury Dr River Po Sand Trap Ln Ayres Road Site Ayr es R Gilham Road Site d Lp River P o int e Inside Eugene Ayres Rd City Limits Talon St Walton Ln Lakeridg e Lp Lake Harbor Dr L ake O S hore Dr Hw de La k Gilham Rd ll L em R o a y ak ont a t e d Dr e Dr Pr iv a Pond De Dr Wal do Lake lt Lakeview Dr N La M et ol k evi e iu w Dr s Crater Lake Dr Dr S ta p p D r a l m T r ee P Elkhorn Dr M a r ie L n Metro Plan Boundary Current Eugene Urban Growth Boundary (UGB) Water Bodies Parks and Open Space (Managed) These areas are being studied to re-designate about 19 of the combined 21 acre study areas from Medium Density Residential (typically multi-family housing) to Low Density Residential 0 250 500 ´ 1,000 Feet Eugene City Limits Protected wetlands/riparian/uplands (typically single-family housing). Data Sources: Study Area Local Wetland Inventory (LWI) Stream This illustration is created to inform discussion within the scope of City of Eugene the Envision Eugene project. Lane County RLID Tax lots Greater than 30% slope Air photo 2011 Note: This map is based on imprecise source data, subject to 100 foot contours change, and for general reference only. Name: North_Eugene_Re_Designation_Base_Map Date Saved: 7/2/2012 PC Agenda - Page 8 dt  Attachment E Irving Road Site (West Baptist Church) Approximate redesignation area for housing 0 125 250 ´ Ft 500 Caution: This map is based on imprecise source data, subject to change, and for general reference only. PC Agenda - Page 9  Attachment F Resthaven Property KNOB HILL LN E 38TH AVE WATKINS LN W 38TH AVE E 39TH AVE WILLAMETTE ST W 39TH AVE T OE S E 39TH PL DENSMO PEARL ST MON R RE RD RE OAK ST ST -H AV E N M EM W 40TH AVE O RI AL E 40TH AVE PA R K NORMANDY WAY PEARL ST O AK CT OAK ST URN DR Potential Re-designation Area - 47 acres BRAE B D LN INWOO ´ T HS R PL M OO HIG T LOCH DR MIL S IDE E 46TH AVE LS O OK WESTBROOK WAY BR Ft 0 125 250 500 Caution: This map is based on imprecise source data, subject to change, and for general reference only. PC Agenda - Page 10  W.13th/Naval Reserve Site Almaden St Taylor Ct Chambers St Taylor St 13th Avenue Chambers Street Taylor St Legend Caution: ´ W 15 Major Streets This map is based on imprecise source data, subject to change, EUG and for general reference only. Ft Taxlots 0 62.5 125 250 PC2013 July 8, Agenda - Page 11