GUEST VIEWPOINT
Revise proposed rezoning change: South Willamette plan could be improved without harming existing landowners Byline: Mark Gillem For The RegisterGuard October 18, 2015 Do no harm. This is an excellent directive for the medical profession, and it is a dictum that Eugene planners should follow as they seek ways to accommodate growth in the city. Unfortunately, from the debate surrounding the proposed rezoning of Eugene's South Willamette Special Area Zone, it is clear that this directive has not been followed. This debate should be of interest to all Eugene residents, because what is happening there could come to their neighborhood in the near future. The city report that details the recommended changes is well done, and provides the type of graphic detail that is missing in Eugene's lengthy land use code. And while one can always argue about involvement, the process did include multiple meetings and opportunities for public input. However, that should not let planners off the hook when it comes to more recent input. Area residents, who are often too busy to attend workshops and design charrettes, are participating now and many are not happy with the proposals. In fact, a recent survey by the South Willamette Neighbors Association found that nearly 97 percent of the respondents in and around the area want the city to postpone a decision and allow more residents an opportunity to provide input. While one can always attribute opposition to the NIMBY syndrome "Not In My Back Yard" this opposition is significant. Residents moved into the area with the expectation that their neighborhood's zoning would remain relatively stable, and public officials should respect that. Regardless of one's position on development, the simple fact that many residents of the neighborhood have serious objections to the prospect of a zone change is enough to set off alarms. Residents have identified flaws in the process and in the resulting plan that affects nearly 500 properties. These concerns should be taken seriously before any zoning change is adopted. One need only track the development around the University of Oregon to see that inappropriate development can lead to neighborhood decline. The proliferation of poorly scaled apartments in neighborhoods to the west, south and east of the university should serve as a wakeup call to all of us. Many affordable, owneroccupied homes have given way to expensive student apartments in these neighborhoods. In my own neighborhood, an outofscale fivestory apartment block backs up to three beautiful rowhouses. Any sense of privacy for the latter has been shattered, which is a major reason why one couple moved out of their rowhouse and built a new home at the edge of town. Bad planning that results in one group moving to the edge of town while a new group moves in thwarts our Metro Plan's laudable goals for sustainable development. Nor is this the path to neighborhood livability outlined in Envision Eugene documents.
But such flight by current homeowners may be one un intended consequence if the City Council adopts the South Willamette Special Area Zone recommendations. The planning team may have gotten a bit carried away in its drive to "improve" the neighborhood. For districts like this, the basic prescription for sustainable infill development is straightforward. First, most if not all existing singlefamily areas and residential height limits should be preserved. This causes the least harm. Regarding the South Willamette Special Area Zone proposal, the bulk of the area is currently zoned R1, which allows for 30foot tall singlefamily homes. With pitched roofs and normal floortofloor heights, this translates into one and twostory homes. The proposed change would create a new and untested SFO (single family options) zone that maintains the 30foot maximum height but allows for new typologies, including courtyard housing and cluster cottages. But current residents bought into a neighborhood of singlefamily homes, and they have a reasonable expectation of consistency. As much as some planners may want to change the housing typology, we should defer to the people who actually live in those neighborhoods before proposing wholesale changes. This new zone would be better suited for new development areas than for existing neighborhoods. Second, along subordinate arterials (such as 24th, 27th and 29th avenues), connected rowhouses with garages accessible from alleys could be the norm in order to create more "eyes on the street," which leads to improved pedestrian safety. However, a troubling aspect of the plan is the creation of yet another zoning category the SFORH (rowhouse) overlay zone that allows even higher development (up to 37 feet with roof) in large chunks of the area. The city already has the R1.5 zone specifically for rowhouses, so this new category would not be needed if city planners improved the current R1.5 requirements. A reasonable compromise would be to rezone the first row of parcels facing these subordinate arterials to R1.5 but keep the 30foot maximum height. This would allow beautiful rowhouses facing the street that would not affect the privacy of their neighbors behind. Third, the plan should focus on rebuilding three to fivestory mixeduse buildings between the primary street Willamette Street and the adjacent alley or midblock. Designers should locate parking behind or to the side of new buildings, and plans should minimize new curb cuts. The city's plan does reduce the maximum height in the area's C2 zone from 120 feet to generally five stories and includes a setback so that Willamette Street does not become an unbroken line of taller buildings. But the plan allows higher density zoning to spill into the neighborhood on both sides and permits even higher buildings along Willamette Street if certain incentives are leveraged. This is unnecessary. Moreover, in a few areas along Willamette Street and 29th Avenue that are currently zoned R3 (mediumdensity residential), the proposed building heights balloon from a 50foot maximum up to eight floors maximum, which could be more than 100 feet tall. Even with the proposed tapering down in some areas, this jump in scale may result in significant loss of livability for many existing residents. Again, there is no need for this. The real problem with the area is Willamette Street itself and the adjoining development. Lowslung strip buildings, unsightly overhead power lines, an unsafe and unattractive streetscape, and dangerous sidewalks have created an environment that repels the very type of mixeduse infill development the city hopes to attract. Rather than radically altering the underlying zoning code, the city should maintain its focus on fixing
the street so that it can attract the type of development and transportation options called for in the Metro Plan and in Envision Eugene. Since there is really no rush to development, extending the process with the goal of developing a more workable set of modest code changes that could garner broad support seems quite reasonable. Moreover, to get all the facts on the table before adopting any plan, the city should complete parallel transportation, parking and housing affordability studies as well as a parcel impact analysis. With a revitalized community process in place, the outcome could benefit all parties. For instance, roughly 15 acres of parcels that directly front Willamette Street are zoned C2 in the study area. In these parcels, developers could fit over 750 new homes in three and fourstory mixeduse buildings with ground floor commercial space and apartments or condos above. With appropriate setbacks, these types of buildings would not impair the view of Spencer Butte, which is a characterdefining element of the neighborhood. In addition, if rowhouses were built directly along the secondary arterials, 150 more homes could be accommodated. That totals more than three times the projected demand in locations and typologies that are compatible with neighborhood livability. Taken together, research shows that people living in these types of buildings along transitfriendly streets will drive up to 50 percent less. For this area, that translates into a forecasted reduction of more than 13 million vehicle miles per year, a carbon emission decrease of more than 14.4 million pounds per year, and an annual per household savings of more than $1,500 just for gas, oil and tires. These benefits are worth a bit of compromise. Since the city anticipates only up to 250 new multi family homes in the neighborhood over the next 20 years (and that is with tax incentives), why propose such a dramatic change to the existing zoning code? The plan could use more surgical precision to do no harm while also meeting the projected demand and leaving ample capacity. Zoning should be used to protect and enhance a neighborhood's character not to fundamentally change it. In the end, we should envision a Eugene that is compatible with the needs and desires of existing residents and that supports a more sustainable future for the next generation of residents who want to take advantage of all our community has to offer.