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Home My WebLink AboutOrdinance 6015 06/03/2002 . . . .. J ORDINANCE NO. 6015 (General) AN ORDINANCE AMENDING THE SPRINGFIELD DEVELOPMENT CODE TO ADD AR- TICLE 40-MIXED-USE ZONING DISTRICTS AND ARTICLE 4 I-NODAL DEVELOP- MENT OVERLAY DISTRICT TO THE DEVELOPMENT CODE; AND ADOPTING A SEV- ERABILITy CLAUSE. WHEREAS, The Eugene-Springfield Metropolitan Area General Plan is the basic guid- ing land use policy document for the City of Springfield, WHEREAS, The "Purpose" section of the Metro Plan describes it as a framework plan. It is intended that more detailed refinement plans, programs, and policies should supplement the Metro Plan (E. RelationshIp to Other Plans and Policies, page 1-5, Metro Plan). WHEREAS, The Eugene-Springfield Transportation System Plan, TransPlan, was adopted in 200 land under state law, TransPlan is a functional plan of the Metro Plan, WHEREAS, TransPlan made findings and established policies that support qnd promote mixed-use development and nodal development; and WHEREAS, Springfield's various neighborhood refinement plans are adopted supple- ments to the Metro Plan, and are authoritative in stating the land use policies that will guide de- velopment in the City; and WHEREAS, The Springfield Downtown Refinement Plan, East Main Refinement Plan, Gateway Refinement Plan, Mohawk Specific Development Plan and the Glenwood Refmement Plan, each show mixed-use on their land use maps and discuss mixed use development in their plan texts; and WHEREAS, The Springfield Development Code was adopted in May 1986 and revised in March 1998, to ensure that development within the planning jurisdiction of the City of Spring- field is of a proper type, design and location; and WHEREAS, The Springfield Development Code implements the planning policies and land use designations set forth in the Eugene-Springfield Metro Area General Plan; and WHEREAS, the current Springfield Development Code, adopted in 1987 and amended in 1992 and 2000, is in need of modification to reflect changes in State law and local public fa- cilities and services needs; and WHEREAS, Article 8 of the Springfield Development Code sets forth procedures for amendments of the Development Code text and those procedures were followed; and WHEREAS, the Springfield Planning Commission recommended the draft Article 40- Mixed Use Zoning Districts and Article 4 I-Nodal Development Overlay to the Springfield City Council by action taken at a public meeting held by the Planning Commission on April 2, 2002; and WHEREAS, the Springfield City Council has conducted a public hearing on April 15, 2002 and having considered the matter in regular session on that date, is now ready to take action based upon the above recommendations and the evidence and testimony already in the record as well as the evidence and testimony presented at the public hearing held in the matter of adopting ORDINANCE NO, 6015 PAGE 1 OF 2 . . . ." the amendment to the Springfield Development Code adding Article 40-Mixed Use Zoning Dis- tricts and Article 41-Nodal Development Overlay District. NOW THEREFORE, THE CITY OF SPRINGFIELD ORDAINS AS FOLLOWS: Section 1. Article 40-Mixed-Use Zoning Districts as set forth in Exhibit A attached and incorporated herein, is hereby adopted, added to, and made part of the Springfield Devel- opment Code, Section 2. Article 41-Nodal Development Overlay as set forth in Exhibit B attached and incorporated herein is hereby adopted, added to, and made part of the Springfield Devel- opment Code. Section 3. If any section, subsection, sentence, clause, phrase or portion of this Ordi- nance is for any reason held invalid or unconstitutional by a court of competent jurisdic- tion, such portion shall be deemed a separate, distinct and independent provision and such holding shall not affect the validity of the remaining portions hereof. Section 4, Therefore this ordinance shall take effect 30 days after the date action is taken by the Common Council of the City of Springfield to approve this amendment. FURTHER, although not part of this Ordinance, the Springfield City Council adopts the findings set forth in the Staff Report which demonstrate conformance of this amendment to the Metro Plan, applicable State statutes and applicable State-wide Planning Goals and Administra- tive Rules, and is attached as Exhibit C, ADOPTED by the Common Council of the City of Springfield this 3rd day of lImp. , ~ by a vote of ~ for and ~ against. 3R-D ~.~lt' APPROVED by the Mayor of the City of Springfield this_day of --J ~ \ ;;..oi)~ , ~QQ 1. ATTEST: Ci~~ REVIEWED & APPROVED AS''::JO FORM ~t)')<':Jt~ ~ \..~~\.~ DATE:-=L/-llJ '20C"L- OFFICE OF CITY ATTORNEY ORDINANCE NO. 601') PAGE 2 OF 2 . , ATTACHMENT 2 r Article 40: Mixed-Use Zoning Districts. M,ixed-Use Commercial (MUC) , , Mixed-Use Employment (MUE) Mixed Use Residential (MUR) ji'l lht"~JgJr&:rh()';'1dl:, . 'll .,sfttr.'.t'(!iJ;;fJd.tvt. , 5h~Mdm, . II r.ist.te 'if' . '" .,....{ ....~~ . a~t-u-.O~ ~, H~, OR March 2002 Draft Article 40- Mixed-Use Zoning Districts October 2001 . Attachment , 2-1 . ARTICLE 40 SPRINGFIELD MIXED-USE ZONING DISTRICTS 40.010 ESTABLISHMENT OF MIXED-USE ZONING DISTRICTS. 40.020 SCHEDULE OF USE CATEGORIES 40.030 LOT SIZE STANDARDS 40.040 LOT COVERAGE STANDARDS 40.050 SETBACK STANDARDS 40.060 HEIGHT STANDARDS 40.070 OFF-STREET PARKING STANDARDS 40.130 PHASED DEVELOPMENT . Draft Article 40'" Mixed-Use Zoning Districts October 2001 Attachment 2-2 . ARTICLE 40 SPRINGFIELD MIXED-USE ZONING DISTRICTS. 40.010 ESTABLISHMENT OF MIXED-USE ZONING DISTRICTS. In order to fully implement the policies of the Eugene-Springfield Metro Area General Plan (Metro Plan) and/or applicable refineinent plans addressing mixed-use development, regulate the use of . land, structures and buildings, and protect the public health, safety and welfare, the following zoning districts are established ill this Article: (1) MUC Mixed-Use Commercial District. The MUC District implements areas designated for mixed-use on adopted refinement plans, specific area plans and specific development plan diagrams where a mix of commercial with residential uses is intended. Development within the MUC District shall have a commercial dominance, with residential and public uses also allowed. The primary development objectivesofthe MUC district are to expand housing opportunities; il.11ow businesses to locate in a variety of settings; provide options for living, working, and shopping environments; facilitate more intensive use of land while . minimizing potentially adverse impacts; and to provide options for pedestrian-oriented lifestyles. Lots in the MUC District shall generally have frontage on either an arterial or collector street. . (2) MUE Mixed-Use Employment District. The MUE District implements areas designated for mixed-use on adopted refinement plans, specific area plans and specific development , plan diagrams where a mix oflight-medium industrial or special light rndustrial uses with commercial or medium-high density residential uses is intended. Development within the MuE District shall have an employment (industrial) emphasis, but may include commercial, public, and multi-family residential uses. Thl:? primary development objectives of the MUE district are to expand employment opportunities by allowing businesses to locate in a variety oflocations, provide services for employees in close proximity to their work place, to provide options for living, working, and shopping environments; facilitate more intensive use of land while minimizing potentially adverse impacts; and to provide options for pedestrian- oriented lifestyles. Lots in the MUE District shall generally have frontage on either an arterial or collector street . (3) MUR Mixed-Use Residential District. The MUR District implements areas designated for mixed-use on adopted refinement plans, specific area plans and specific development plan diagrams where a mix of medium and high density residential with commercial uses is intended. The MUR District shall only be applied to properties that are contiguous with property designated Community Commercial, Mixed-Use Employment or Mixed-Use Commercial on the Springfield Zoning Map. Development within the MUR District shall have a multi-family residential emphasis, but may include small-scale retail, office and service uses when they are developed as part of a mixed-use development in order to increase housing opportunities in close proximity to designated commercial zones; support the retail, office and service uses of the adjacent commercial zone; and to provide options for Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-3 '. . . pedestrian-oriented lifestyles. Lots in the MUR District shall generally have frontage on either an arterial or collector street. (4) Applicability. This Article and all of its provisions apply to the MUC, MUE, and MUR Districts shown on the Springfield Zoning Map. Single family dwelling units in theMUR zone for which building permits were filed prior to the designation of an area for mixed-use development shall be exempt from Section 5.030 of this Code and from the standards of this Article for the purposes of reconstruction if such a dwelling unit is partially or completely destroyed or if the dwelling undergoes renovation. Room additions or other expansions typical of.a single-family use shall also be allowed. (5) Conflicts. ~) In cases where the development standards of this Article conflict with standards found in other Articles in this, Code, the standards of this Article shall prevail. Exception: Standards in this Code pertaining to environmental protection, water quality protection and or public health and safety matters shall prevail over the standards in this Article. ' b ) Development standards found in adopted refinement plans, specific area plans and specific development plans shall prevail over those in this Article. ' . , (6) Review Procedure. 'All mixed-use developments shall be reviewed as a Type II Limited Land Use decision, in accordance with Article 3, as part of the Site Plan Review process specified in Article 31. The Director may also determine that a mixed-use development is subject to a higher level of review (i.e., Type III versus Type II), when it is in the public interest. 40.020 SCHEDULE OF USE CATEGORIES The following uses shall be permitted in the districts as indicated subject to the provisions, additional restrictions and exceptions specified in this Code. 'P' = PERMITTED USE, subject to the standards of this Code; may be processed under Type I, II or III procedures (Please refer to Article 3 of this Code). "S" = SPECIAL USE, subject to speciallocational and siting standards to be met prior to being deemed a permitted use; may be processed under Type I, II or III procedures (Please refer to Article 3 of this Code). "D" = DISCRETIONARY USE, mayor may not be permitted, based upon the application of general criteria; may be subject to speciallocational and siting standards to be met prior to being deemed a permitted use; processed under Type III procedures (Please refer to Articles 3 and 10 of this Code). Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-4 . . . - = NOT PERMITTED SITE PLAN REVIEW SHALL BE REQUIRED for all development proposals within all mixed use districts unless specifically exempted elsewhere in this Code. Districts CategorieslU ses . MUC MUE MUR (1) Accessory Use Structures' - P S Accessory Structures (16.1 OO( 1 )) (2) Agricultural And Animal Sales And Services: - P P (a) Agricultural cultivation of undeveloped land . p' - - (b) Garden supplies (3) Automotive, Marine And Mobile/Manufactured Home Sales, Service, Storage And Repair: - - P, - (a) Garage, repair S P S (b) Parking lots and parking structures (Section 40.100 (b)(1-2)) - P - (c) Tires, batteries and accessories (4) Business And Professional Offices And Personal Services: P P P (a) Accountants, bookkeepers and auditors P P P (b) Advertising/marketing agencies P P P (c) Architects, landscape architects and designers P - P (d) Art studios, fine P - P (e) Art restoration P ,P P (f) Attorneys P P - (g) Audio/video production studio P - P (h) Authors/composers . P P P (i) Banks, credit unions and savings and loans P P P (j) Barber and beauty shops P P - (k) Blue printing, Photostatting, and photo developing P - - (1) Business schools P P P (m) ,Business, labor, scientific and professional organizations and headquarters P P - (n) Catering services P P P (0) Clinics and research/processing laboratories P - P (p) Collection agencies P P P (q) Commodity contract brokers and dealers P P P (r) Computer and information services P P P (s) Dentists P - P (t) Detective and protective agencies P P P (u) Doctors P P -, P (v) Drafting, graphic and copy services P P P (w) Employment agencies and services Draft Article40- Mixed-Use Zoning Districts October 2001 Attachment 2-5 . ., . Districts '. CategorieslU ses MUC MUE MUR P P P (x) Engineers and surveyors P P P (y) Financial planning, investment services P P P (aa) Graphic art services . P P - (bb) Gymnastics instruction P - - (cc) House cleaning services P P P (dd) Insurance carriers, agents, brokers and services P - P (ee) Interior decorator and designers P P - (ft) Laundry, dry cleaners, including self-service, and ironing services P P P (gg) Loan companies, other than banks P .p P (hh) Locksmiths P P P (ii) Lumber brokers P P P OJ) Mailing services/mail order sales P P P (kk) Management and planning consultants S P - (11) Manufactured unit as a temporary construction office, night watchperson's quarters or general office (36.160(1), (3) and (4)) P P - (nn) Motion picture studio/distribution P - P (00) Non-profit organizations P P P (Pp) Opticians P - P (qq) Perfonning arts instruction P P P (rr) Photocopying c ,. . P P P (ss) Photography studios P P P (tt)Planners, land use P P - (uu) Printing/publishing .. - - .. P P P (vv) Psychologists and counselors P - P (ww) Real estate sales and management P P P (xx) Scientific and educational research P P - (yy) Security systems services P P - (aaa) Self-defense studio P P P (bbb) Shoe repair '. P P P (ccc) Stenographers and secretarial services P P P . (ddd) Stockbrokers P - - (eee) Swimming pool cleaning P - P (fff) Tailors . P - P (ggg) Taiming salons P - P (hhh) Title companies P P P (iii) Telephone answering services P P P G.m Travel agencies' S P - (ill) TV and radio broadcasting studios (does not include antennae) P P P (111) Typing services P - - (~)VVindowclemring (5) Communications Facilities: - D - (a) Communications towers, including antennas and relay equipment. - D - Certain VVireless Telecommunications Systems Facilities (Article 32). Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-6 . . -' . Districts Categories/U ses MUC MUE MUR Refer to Section 32.130 for siting standards and review process in all commercial zoning districts. D D D (b) Communications antennas for public agencies and emergency services , (6) Da Care Facilities: S S P (a) Day Care Home - 1 to 5 children (18.110 (3)(a)) - - . P (b) Day Care Group Home -6 to 12 children S* S* S* (c) Day Care',Center - 13 or more children (abutting an arterial street) (16.100(4)) S* S* S* (d) Day Care Center - 13 or more children (abutting a collector or local street) (16.1 00(4)) S* S* P (e) AdultDay Care - facilities up to 12 adults (18.110(3)) S* S* S* (f) Adult Day Care - facilities with more than 13 adults (abutting an arterial street) (16.1 00(4)) S* S* S* (g) Adult Day Care - facilities with more than 13 adults (abutting a collector or local street) (16.100(4)) (7) Eating And Drinking Establishments: P P - (a) Cafeteria (serving employees only) P P - (b) Cocktail lounges P '. P P (c) Delicatessens and sit down restaurants , . including espresso shops S P - (d) Drive up restaurants and espresso shops (40. 100 (1)(a)) S P (e) Taverns arid brew pubs (Section 18.110(5)(b)) . - (8) Educational Facilities- Public And Private Elementarv And Middle Schools: - - P (a) 1 to 5 students in a private home (in a 24 hour period) - D D (b) 6 or more students in a private home (Section 1 0.030(4)) - D D (c) Private/publiC elementary and middle Schools (18.110(14)) - D - (d) Secondary schools and colleges (9) Group Care Facilities: - - P (a) Foster homes for up to 5 children - - S* (b) Residential care facilities with more than 15 persons '. ' include: Group care homes, congregate care facilities" nursing homes and retirement homes (16.100(7)) (0) Halfway Houses (See Special Use Standards for Group Care Facilities): - - D (a) Residential Facility - 6 to 15 persons - - D (b) Residential Home - 5 or fewer persons - - D (c) Shelter homes for abused and battered persons (11) Home Occupations: S S S ' (a) Home Occupations (16.100 (6)) (12) Manufacture And/Or Assembly Of : - P - (a) Appliances P P - (b) Apparel and other finished products made from canvas, cloth, fabrics, feathers, felt, leather, textiles, wool, yam Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-7 . . . Districts Categories/U ses MUC MUE MUR . and similar materials P (c) Communication equipment, including radio . - - and television equipment - P - (d) Costume jewelry, novelties, buttons and misc. notions - P - (e) Cutlery, hand tools and hardware - P - (f) Electronic components and accessories - P - (g) Electronic transmission and distribution equipment - P - (h) Engineering, laboratory, scientific, andresearch instruments ' . - P - (i) Finished wood manufacturing and assembly including cabinets and door frames - P - (j) Furniture, including restoration - P - (k) Greeting cards, business forms and other business related printing - P - (1) Measuring, analyzing, and controlling instruments - P - (m) Medical, dental, and surgical equipment and supplies - ,P - (n) Medicinal chemicals and pharmaceutical products - P - (o) Metal fabrication and machine shops - P - (P) Musical instruments - P - (q) Prosthetic and orthopedic devices - P - (r) Office computing and accounting equipment - P - (s) Optical instruments, including lenses - P - (t) Perfumes and toiletries - P - (u) Photographic equipment and supplies - P - (v) Signs and advertising display . - P - (w) Toys, sporting and athletic goods - P - (x) Watches, clocks, and re1at~d.components . (13) Other Industrial Uses: - S - (a) Industrial Parks (subdivisions)(21.130) P P - (b) Media productions, including TV and radio broadcasting, . motion picture production and newspaperlbook/periodica1 publishing - P - (c) Regional distribution headquarters, including indoor storage - P - (d) Research development and testing laboratories and facilities - P - (e) Accessory structures - P - (f) Administrative professional or business offices (14) Public Utility Facilities: - S - (a) High impact facilities (20.100(5)(a-b)) S P - (b) Low impact facilities (18. 11 O(4)(b)) (15) Recreational Facilities: P P - (a) Arcades Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-8 . . . Districts Categories/U ses MUC MUE MUR ~ P P - (b) Art studios, performing - P - (c) Auditoriums - P - (d) Bingo parlors - P - ( e) Bowling alleys - P - (f) Dance halls P P P (g) Exercise studios P P - (h) Gyms and athletic clubs P P P (i) Hot tub establishments P - P (j) Miniature auto race track (e.Q. slot car track) S - - (k) Miniature golf (40.100(d)) S P - (1) Movie theaters; indoor, single screen (40.100(d)) P P - (m) Non Alcoholic Night Club P P - (n) Off-track betting facility P P P (0) Parks, privat~ and public P P P (p ) Playground - . P P P (q) Play/tot lot P P (r)Pool halls - - P P - (s) Recreation center - P - (t) Skating rinks P p P (u) Tennis, racquetball and handball courts P P, - (v) Theater, legitimate (live stage) (16) Reli2ious, Social And Civic Institutions: P - D (a) Branch educational facilities P - D (b) Charitable services . D - D (c) Churches, mosques, temples and weekly religious ~chool (18.110(14)) , P - P (d) Community and senior centers P - - (e) Fraternal and civic organizations P - -, (f) Hospitals p D (h) Public offices - '.D* D* (i) PrivateIPublic Elementary and Middle Schools (18.110(14)) (21.040 (2)) (17) Residential Uses In Areas Designated Mixed-Use In The Metro Plan Or Reimement Plans. S p S (a) Accessory structures (16.100(1)) , P - P (b) Attached single family dwellings including rowhouses (Section 18.110(6). S - S (c) Cluster Development (Section 16.100(3)) P P P (d) Condominiums .. - - P (e) Duplexes (Section 16.100(5)) P P P (f) Multiple family dwellings including triplexes, four-plexes, quads, quints, and apartment complexes over 4 units Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-9 . Districts Categories/U ses MUC MUE MUR (18) Retail Sales: P - P (a) Antiques P - P (b) Apparel P - P (c) Art galleries and museums P - P (d) Art supplies P P P (e) Bakeries P - P (f) Bicycles . P - P (g) Books P - P (h) Cameras and photographic supplies P - P (i) Candies, nuts and confectioneries P - P (j) China, glassware and metalware ,. P - .. - (k) Cigars and cigarettes P P - (1) Computers, calculators and other office machines P P P (m) Convenience stores . P P P (n) Dairy products P - _. (0) Department stores P - P (P) Drapery, curtains and upholstery P - P (q) Dry Goods and general merchandise P - - (r) Electrical supplies . P - P (s) Fabrics and accessories P - P ,(t) Film drop off and pick up (not a drive-through) P - - (u) Fish P - P (v) Floor coverings P - P (w) Florists - P - P (x) Fruits and vegetables p - - (y) Furniture , P - - (z) Furriers p - P (aa) Groceries . P - - (bb) Hardware, p - - (ec) Hobby supplies p - - (dd) Household appliances P - - ( ee) Jewelry P - - (ft) Liquor outlets (State) p - - (gg) Luggage and leather P - - (hh) Magazines and newspapers P - - (ii) Mail order'houses P - - OJ) Meats P - - (kk Medical and dental supplies P - - (11) Musical instruments and supplies P - - (mm) Novelties and gifts . P P - (un) Office equipment p - - (00) Paint, glass and wallpaper p P P (pp) Pharmacies Draft Article 40- Mixed-Use Zoning Districts Attachment October 2001 2-10 . . . Districts CategorieslUses MUC MUE MUR l' - - (qq) Pottery l' - - (rr) Radios, televisions and stereos l' - - (ss) Second hand and pawn shops l' - - (tt) Sewing machines l' - l' (uu) Shoes' l' - - (vv) Small electrical appliances l' - l' (ww) Sporting goods l' l' l' (xx) Stationary . l' - - (yy) Supermarkets l' - l' (zz) Toys (19) Small Scale Repair And Maintenance Services: (40.l00(1)(d)) S l' l' (a) Business machine repair S l' - (b) Electrical appliance repair S p - (c) Furniture repair ,- ,1' - (d) Janitorial services S - - (e) Small engine repair l' l' l' . (f) Watch repair (20) Transient Accommodations: l' - S (a) Bed and breakfast facilities - -. S (b) Emergency shelter facilities (See MUR Special Use Standards for Group Care Facilities) l' - - (c) Youth hostels (21) Transportation Facilities: . - l' - (a) Heliports - l' - (b) Helistops l' l' l' (c) Public transit station, without park & ride lot (22) Transportation Related, Non-Manufacturing: - l' - (a) Key/card lock fuel facilities (23) Warehouse Commercial Retail And Wholesale Sales And Distribution: - l' - (a) Cold storage lockers - l' - (b) Electrical supplies and contractors - l' - (c) Floor covering sales - l' - (d) Indoor storage, other than mini-warehouses, and outdoor storage areas/yards - l' - (e) Large electrical appliance sales - l' - (f) Merchandise vending machine operators - l' - (g) Plumbing and heating supplies and contractors - P - (h) Unfinished furniture - - - (i) Uses listed under automotive and retail which are wholesale uses - l' - (j) Regional distribution headquarters, including indoor storage - - - (k) Warehouse/commercial uses engaged primarily in the wholesaling of materials to the construction industry Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-11 e e. e Districts Categories/U ses MUC MUE MUR - - - (1) Wholesale trade, warehousing, distribution and storage (to include mini-storage) (24) Secondary Uses Serving Or Related To On Site Commercial Or Industrial Uses: p p - (a) Manufacture or assembly of goods or products to be sold ort premises - p - (b) Accessory structures p p p (c) Administrative professional or business offices p p - (d) Blueprinting, photostatting, and photo developing - p - (e) Cafeteria (sewing employees only) p p, P (f) Daycare facilities (primarily serving employees on site) - p p (g) Developed recreation area (serving the development area) - p - (h) Heliports andheIistops p p. p (i) Financial iristitutions - p - (j) Manufactured home used as a night watch person's quarters (36.190(2) - S - (k) Outdoor storage of materials directly related to a permitted use. (40.120(2)( c)(1-2)) 40.030 LOT SIZE AND DIMENSION STANDARDS (1) In the MUC District, the minimum lot size shall be the saine as specified for commercial uses in Section 18.030 of this Code. , , (2) In the MUE District;theminimum lot size shall be the s'ame asthose specified for Light and Medium Industrial uses in Section 20.030 of this Code. (3) In the MUR District, the minimum lot size shall be the same as those specified for residential districts in Section 16.030 of this Code. 40.040 LOT COVERAGE STANDARDS. (1) Lot coverage standards in the MUC District shall be limited only by standards (e.g. required parking, landscapmg, etc.) specified in Articles 31 and 32 of this Code. Generally, there shall . be no maximum lot coverage standard in the MUC District. (2) Lot coverage standards in the MUEDistrict shall be limited only by standards (e.g. -required parking, landscaping, etc.) specified in Articles 31 and 32 of this Code. Generally, there shall be no maximum lot coverage standard in the MUE District. (3) Lot coverage standards in the MUR District shall be the same as the standards specified in Section 16.040 of this Code. 40.060 SETBACK STANDARDS Draft Article 40- Mixed- Use Zoning Districts October 2001 Attachment 2-12 . (1) The setback standards for the MUC District shall comply with the requirements specified for commercial uses in Section 18.050 of this Code. Exception: There shall be no minimum building setback requirement in the front, street side yard or through lot rear yard lot lines. (2) The setback standards for the MUE District shall comply with the requirements specified for industrial uses in Section 20.050 of this Code. (3) The setback standards for the MUR district shall comply with the requirements specified for residential uses in Section 16.050 of this Code. 40.060 HEIGHT STANDARDS (1) The maximum height for buildings in the MUC shall be 60 feet. . Proposals for buildings exceeding 60 feet can be considered under Article 10 Discretionary Use where such proposals can be shown to meet the criteria for approvallisted in Section 10.030 (1)-(3). ' Exception: When a MUC district abuts an LDR, MDR or MUR District, the building height limitations of Subsection 18.060(1)-(3) shall apply. . (2) The maximum height for buildings 'in the MUE district shall be 45 feet. Exception: When a MUE District abuts an LDR, MDR or MUR District, the building height limitations of Subsection 21.080(1) (a) and (b) and (2) shall apply. (3) The maximum height for buildings in the MUR district shall be 35 feet. Exception: When a MUR District abuts anLDR or MDR District, the building height limitations ofSilbsection 16.060(1}(a) and (b) and (2}shall apply. 40.070 OFF-STREET PARKING STANDARDS. (1) Parking requirements in Mixed-Use Districts are as follows: a) Nonresidential requirements: . 1. Surface parking shall meet the minimum parking requirement for the various use categories described in Section 18.070 of this Code for commercial uses and Section 20.070 of this Code for industrial uses. The Director may reduce the minimum number of parking spaces required, based on a parking generation study, without the need for a variance. The study shall demonstrate how a proposal to reduce parking is , justified by estimated peak use, easy pedestrian access, availability of transit service, and adjacent on-street parking. This reduction shall be limited to 20% of the established standard. Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-13 . . . 2. The maximum number of parking spaces allowed shall not exceed 120% of the minimum parking requirement for the various use categories described in Section 18.070 of this Code for commercial uses and Section 20.070 of this Code for industrial uses. The Director may increase the allowed number of parking spaces based ona parking generation study; using statistical analysis from the Institute of Transportation Engineering (ITE) Parking Generation Report without the need for a variance. The study shall demonstrate how a proposal to increase parking is justified by estimated peakuse, and how parking demand management techniques to reduce the needed number of spaces would be ineffective for thedevelopment. b) Residential requirements: Minimum off-street parking standards for residential uses shall comply with the standards specified in Section 16.070 ofthis Code. Exception: The Director may red~lce the minimum residential parking standard when it is demonstrated that proposed housing is aiong a frequent service transit line, or is otherwise provided for by the code. (2) Exception Areas. The Downtown Exception Area shall be exempt from the parking space' requirements of this Section. Exception: Any voluntarily installed parking shall conform to the parking design standards specified in Sections 31.170 to 31.190 of this Code. 40.080 FENCE STANDARDS. (1) Fences in the MUC district shall be the same as the standards specified in Section 18.100 of this Code. Exception: No barbed wire, razor wire or electrified fencing shall be permitted. (2) Fences within the MUE district shall be the same as the standards specified in Section 20.090 of this Code. (3) Fences within the MUR district shall be the same as the standards specified in Section 16.090 of this Code. Exception: No barbed wire, razor wire or electrified fencing shall be permitted. 40.100 SPECIAL USE STANDARDS Draft Article 40- Mixed-Use Zoning Districts . October 2001 Attachment 2-14 . . . (1) Special use standards for the MUC district shall be the same as those specified in Section 18.110 of this Code. Exceptions: a) In MUC districts, drive-up restaurants and espresso shops shall be designed so that circulation and drive-up windows are not adjacent to sidewalks or between buildings and the street, to the maximum extent practicable. b) Parking Lots and Parking Structures, Public and Private. 1. In MUC districts surface parking lots abutting public streets shall include perimeter , landscaping and shade trees as specified in See Sections 18.050 and 31.140 (3) of this Code). 2. Parking structures located within 20 feet of pedestrian facilities including but not limited to public or private streets, pedestrian accessways, greenways, transit stations, shelters, or plazas, shall provide a pedestrian-scale environment on the fayade facing the pedestrian facility. One or more of the following techniques may be used: . A. Provide retail or office uses on the ground floor of the parking structure facing the pedestrian facility; B. Provide architectural features that enhance the ground floor of a parking structure adjacent to the pedestrian facility, such as building articulation, awnings, canopies, building ornamentation and art; and/or C. Provide pedestrian amenities in the transition area between the parking structure and pedestrian facility, including landscaping, trellises, seating areas, kiosks, water features with a sitting area, plazas, outdoor eating areas, and drinking fountains. c) Residential Uses. 1. In areas designated for mixed-use in. adopted refinement plans, specific area plans, and specific development plans, multiple family development shall be required to meet development standards as specified in the local refinement plan. MDR and HDR District standards specified in Article 16 of this Code shall be complied with where local refinement plans do not specify development standards, or in areas where no local refinement plan has been prepared. All multiple family developments shall meet the standards specified in Section 16.110 of this Code. 2. Cluster Development. Development standards specified in Section 16.100 (3) of this Code shall apply to cluster deyelopments in the MUC district. Draft Article 40- Mfxed-Use Zoning Districts October 2001 Attachment 2-15 . . . d) In MUC districts these services shall take place entirely indoors, and buildings shall be constructed and utilized to ensure that noise or odor do not disturb the normal operation and tranquility of neighboring residential and business area (2) Special use standards for uses within the MUE district shall be the same as those specified in Section 20.100 of this Code. Exception: Subsection of20.100 (3) of this Code shall not apply in the MUE District. (3) Special use standards for uses within the MUR district shall be the same as those specified in Section 16.100 of this Code as they apply to MDR and HDR development. Exceptions: a) Professional offices specified in Section 16.100 (11) (a.:.f) of this ,Code shall be exempt from those special use standards, but shall meet the standards for development specified in Subsection 40.130 (3) (c) of this Code. ' b) MUR allows uses that are not allowed in the MDR and HDR Districts. Permitted uses are listed in 40.010 of this Code. Nonresidential uses that are not "professional ofti,ce" related but have "s" designations in 40.010 ofthis Code, shall comply with the development standards listed in Subsection 40.130 (3)(c). c) Residential and Day Care Uses shall comply with the special use standards listed in Subsection 16.1 00(4) of this Code. 40.110 GENERAL DEVELOPMENT STANDARDS FOR MIXED-USE DISTRICTS. (1) Building Design, Standards. Mixed use zoning districts require special attention to building 'design because of the intermixing of land uses and higher intensity of development that can occur in such areas. New structures and improvements to facades requiring building permits shall provide architectural relief and interest, with emphasis at building entrances and along sidewalks, to promote and enhance a comfortable pedestrian scale and orientation; Blank walls shall be avoided to the maximum extent practicable by complying with the following minimum requirements. The following standards are intended to be specific and quantifiable while allowing for flexibility. in design. ' a) Ground floor windows shall be required for all civic and commercial uses. All elevations of buildings abutting any str.eet shall provide at least 50 percent of their length (e.g. a 100-ft.-wide building facade shall have a total of at least 50 linear ft. of windows) and at least 25 percent of the ground floor wall area as windows and/or doors that allow views into lobbies, .merchandise displays, or working areas. On comer lots this provision shall apply to both elevations. Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-16 . . . Exception: Elevations of buildings adjacent to alleys or vehicle accessways used primarily for service and delivery access shall be exempt from this requirement. b) Ground floor windows shall be required for all industrial uses. The primary entrance elevation of a building abutting a street shall provide at least 30 percent windows at the pedestrian level. On comer lots, this provision shall apply to both elevations with street frontage. The windows shall be measured in linear fashion (e.g. a 100-ft.-wide building facade shall have a total of at least 30 linear ft. of windows and/or doors on the ground floor that allow views into lobbies, merchandise displays, or working areas). c) Along the vertical face of a structure, offsets shall occur at a minimum of every 50 feet by providing at least one of the following: L Recesses including but not limited to entrances and floor area with of a minimum depth of 4 feet. 2. Extensions including but not limited to entrances and floor, area with a minimum clearance of 4 feet, a minimum depth of 4 feet, and a maximum length of an overhang shall be 25 feet. 3. Offsets or breaks in roof elevation with a minimum of 3 feet or more in height. d) In order to break up vast expanses of single element building elevations, building design shall jnc1ude a combination of architectural elements and features including but not limited to offsets, windows, entry treatments, wood siding, brick, stucco, textured concrete block, etc. e) In order to provide differentiation between the ground floor and upper stories, building design shall include bays or balconies for upper levels, and awnings, canopies, or other similar treatments for lower levels. Variation in building materials, trim, paint, ornamentation, windows, or other features such as public art, may also be used. f) External modifications proposed for structures listed on the Springfield Historic Inventory shall comply with the applicable standards specified in Article 30. Historic Overlay District. ' (2) Building Orientation and Maximum Setbacks. To the greatest extent practicable, all new buildings in a mixed-use development shall be oriented toward both exterior and internal streets in a manner that frames and defines both streets and pedestrian areas along those streets. Buildings in mixed-use developments shall not be separated from fronting' streets. Parking shall be located behind buildings, internal to development on a site. For existing development sites, outparcel buildings between a large parking lot and the street shall be used to help define the streetscape, and lessen the visual impact of the parking lot from the street. Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-17 . . . a) Public entrances to all new buildings in the MUC District shall be shall be visible from the street and oriented so that pedestrians have a direct and convement route from the street sidewalk to building entrances. b) At least one major pedestrian entrance shall be oriented to each street that the building abuts. Corner pedestrian entrances may be used to provide entrance orientation to two streets. Buildings abutting a street governed by an access management policy shall provide for a pedestrian entrance to the street, but not a vehicle entrance on that street. c) Buildings shall not be set back from streets or plazas. Exceptions: Street setbacks may be approved by the Director when: 1. The building design incorporates public seating, plazas, or other usable public space as specified in Subsection (7) of this section; 2. The building design incorporates landscaped stormwater quality facilities within the setback area that also enhance the pedestrian scale, orientation and interest; 3. Necessary to preserve existing healthy mature trees; or 4. Necessary to accommodate handicapped access requirements. (3) Weather Protection. New commercial or residential development shall provide a weather- protected area, including but not limited to awnings or canopies, at least 6 foot wide, along the portion of the building abutting sidewalksand/or plazas. Weather protection shall follow building offsets to eliminate long expanses of awnings and or canopies. (4) Landscaping and Screening. Mixed-use developments shall provide landscaping and screening in accordance with Sections 31.140 and 31.160 of this Code and the following standards: a) Street trees shall be required consistent with Section 32.050 of this Code. ' Species shall be compatible with the design features specified in Subsection (7) of this section and shall provide continuity with nearby landscaping. The Director may granta one-for-one reduction in the number of street trees required when a development preserves healthy, mature trees located within 10 feet of the sidewalk Required street trees shall be placed in planter strips between sidewalks and curbs as specified in Section 32.040 and 32.050 of this Code, or in individual tree pits. If individual tree pits are utilized, each pit shall be a minimum of 64 square feet per tree, with a minimum width of 4.5 feet. b) Screening of parking areas, drives, mechanical' equipment and trash receptacles shall be as specified in Section 31.160 of this Code. In addition: 1. No receptacles shall be allowed within the front setback areas abutting residential zoning districts. Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-18 . . . 2. All ground-mounted utility equipment not installed underground shall be placed to reduce visual impact or screened with walls or landscaping. 3. Not withstanding the timelines specified in Section 31.140 of this Code, plants shall ' be sized to attain 50 percent coverage in 2 years and 100 percent coverage in 4 years. c) Irrigation systems shall be required to support landscaping. Drought-resistant plants shall be encouraged. See Sections 31.050 (1) (0) ~d 31.140 (4) of this Code. d) Parking areas, drives, and mechanical equipment shall be screened as per Section 31.160 of this Code.. Dumpsters and other large. trash receptacles shall be screened from on and off site view by placement of a solid fenced or walled enclosure, from 5 to 6 feet in ,height. No receptacles are allowed within front setback areas abutting Residential zoning districts. All ground-mounted utilities equipment not placed underground shall be placed to. reduce visual impact or screened with walls or landscaping. Plants shall be sized to attain 50 percent coverage in 2 years and 100 percent coverage in 4 years. (5) Street Connectivity and Internal Circulation. In mixed use developments: a) Streets and accessways of anyone development or site shall interconnect with those of adjacent developments or sites. Internal street or circulation patterns that isolate a development from all adjacent developments, and only allow access to fronting arterial or collector streets, shall be prohibited. Exception: The Director may determine that topography and/or existence of natural , features of the development site would be better accommodated with an alternative circulation pattern. b) Streets and accessways shall align and connect to each other to create a direct and convenient pattern of circulation that is consistent with the City's existing street and block pattern in the area. The maximum block perimeter shall be 1,400 feet. c) A mixed use development's street network (both public and private on-site streets) shall connect directly to neighborhood streets in the surrounding area, providing multiple paths for pedestrian, bicycle, and vehicular movement to and through the development area. In this way, trips made from the surrounding residential neighborhood to the mixed use development will be possible without requiring travel along a major thoroughfare or arterial. ' d) Outparcel buildings should be connected to and served from the internal streets of the primary development area of which they are a part. e) Pedestrian paths and sidewalks shall connect all building entrances with each other and with public rights-of-way in a manner that is direct and convenient for the pedestrian. (6) Neighborhood Compatibility. Draft Article 40- Mixed-Use Zoning Districts October 2001 ' Attachment 2-19 . . . Minimum standards adjacent to Low Density Residential districts: a) Architectural compatibility between new development and adjacent LDR development, including but not limited to similar roof forms, windows, trim, and materials, shall be required to the maximum extent practicable. b) Lighting shall be arranged and constructednot to produce direct glare on adjacent LDR development as specified in Subsection 31.160 (3) of this Code. c) Site obscuring landscaping shall be required including but not limited to the retention of existing vegetation; installation of a 6-foot minimum height, site-obscuring fence with shade trees planted a maximum of 30 feet on center (2-inch caliper at planting); and/or , other landscaping to provide visual buffering. d) Mechanical equipment shall be screened from view from adjacent LDR properties and the street as specified in Subsection (4)(b) of this Section. Mechanical equipment shall be buffered so that noise does not typically exceed 50 decibels as measured at the LDR property line. The City may require a noise study certified by a licensed acoustical engIneer. (7) Pedestrian Amenities a) All nt?w structures and substantial improvements to existing buildings shall provide pedestrian amenities, as specified in this Subsection. The number of pedestrian amenities provided shall comply with the following sliding scale. Size of Structure or Substantial 1m rovement <5,000 s . ft. 5,000 - 10,000 s . ft. 10,000 - 50,000 s . ft. >50,000 sq. ft. Number of Amenities 1 2 3 4 b) Acceptable pedestrian amenities include: 1. Sidewalks incorporating ornamental paving treatments, including but not limited to concrete masonry unit pavers, brick, or stone, which are 50% wider than required by this Code. 2. A public outdoor seating plaza adjacent to or visible and accessible from the street (minimum useable area of 300 square feet). 3. Sidewalk planters between sidewalk and building including stormwater swales. 4. Street tree density more extensive than required by this Article. Draft Article 40- Mixed-UseZoning Districts October 2001 , Attachment 2-20 . . . 5. Streetscape scale container planters. 6. Installation of 3" caliper size or larger to fulfill the street tree requirement. 7. Public art including but not limited to sculptures, fountains, clocks, or murals with a value equal to or greater than one (1) percent of construction value of the structure. 8. Pocket parks with a minimum usable area of 300 square feet. c) Guidelines for the siting, construction and character of pedestrian amenities: 1. Amenities shall be visible and accessible to the general public from a fully improved street. Access to pocket parks, plazas, and sidewalks shall be provided via a public right-of-way or a public access easement. 2. The size or capacity of pedestrian amenities shall be roughly proportional to their expected use, including use by employees,' customers, residents, and other visitors. The Director may alter minimum area standards for pocket parks and plazas based on this guideline. 3. Amenities shall be, consistent with the character and scale of surrounding developments. For example, similarity in awning height, bench style, planter materials, street trees, and pavers is recommended to foster continuity in the design of pedestrian areas. Materials shall be suitable for outdoor use, easily maintained, and have at least a 10-year expected service life. 4. Bus stops, as a pedestrian amenity, shall conform to standards of the Lane Transit District. 40.120 SPECIFIC DEVELOPMENT STANDARDS FOR MIXED-USE DISTRICTS (1) MUC Development Standards. a) Preservation of the Commercial Land Supply 1. 100 percent of a new mixed use building footprint may be developed for commercial uses. 2. A minimum of 60 percent of the ground floor area within a new building in the MUC district shall be dedicated to commercial uses to ensure that commercial land is preserved for primarily commercial purposes. Up to 100 percent of any building may be developed for residential uses so long as 60 percent of the total ground floor area , within the development area is devoted to commercial uses. ' Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-21 . Exception: This provision shall not apply when commercial uses are proposed for an existing residential building within a commercial district that was within a commercial qistrict prior to the adoption of the MUC district. Exception: 100 percent of all residential uses shall be on the second story or above in the area designated Downtown Mixed-Use in the Springfield Downtown Refinement Plan. 3. The commercial uses on an MUC site shall be developed prior to or concurrently with other proposed uses. Exception: This provision shall not apply to residential and/or limited manufacturing uses that are in existence' as ofthe adoption of the MUC District. b) Maximum Footprint for Retail Uses. The maximum building footprint for a single commercial use shall be 50,000 square feet. c) Minimum Floor Area Ratio. A minimum floor area ratio (FAR) of.40 shall be required for all new development or redevelopment in the MUC district. FARis defined for this purpose as the amount of gross floor area of all buildings and structures on the building lot divided by the total lot area. . (2) MUE Development Standards a) Preservation of the Industrial Land Supply 1. A minimum of 60 percent of the gross floor area within a MUE district shall be dedicated to industrial uses to ensure that industrial land is preserved for primarily industrial purposes. Exception: Pre-existing structures and uses shall be covered under the provisions of Article 5 of this Code that addresses continuing non;..conforming uses. 2. "Businesses and Professional Offices and, Personal Services" listed in Section 40.020(4) of this Article shall not have a ground floor area of more than 5,000 square feet for anyone use. 3. The industrial uses on an MUE site shall be developed prior to or concurrently with any other commercial or residential uses. ' Exception: Commercial and/or residential uses that are m existence as of the adoption of this MUE District. . b) Minimum Floor Area Ratio. A minimum floor area ratio of .25 is required for all new development or redevelopment in the MUE district. Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-22 . . . c) On-Site Design Standards specified in Section 21.120 of this Code shall apply to development in the MUE district with the following exception: 1. Outdoor storage is allowed, but storage areas shall not be permitted in front or'street- side yards. 2. Outdoor storage shall be screened from the view of adjacent properties and from public rights-of-way as specified in Section 31.160(2) of this Code. -Painted structural screens shall match the building color scheme of the development area. 3. The- minimum landscaped open space and the maximum impermel:tble surface standards specified in Section 21.120 (2) of this Code shall be reduced to 25 percent and 75 percent respectively. (3) MUR Development Standards a) Preservation of the Residential Land Supply 1. A minimum of 80 percent of the gross floor area within a MUR district shall be dedicated to multi-unit residential uses to ensure that medium and high density land is preserved for primarily residential purposes. Exception: Pre-existing structures and uses shall be covered under the provisions of AD:icle 5 of this Code that addresses continuing non-conforming uses. 2. The residential uses on an MUR site shall be developed prior to or concurrently with any other commercial or industrial uses. Exception: Commercial and/or industrial uses that are in existence as of the adoption of this MUR District. b) Minimum/Maximum Residential Densities. 1. Minimum residential densities for strictly residential development within an MUR district shall be 20 units per gross acre. 2. Minimum residential densities for developments that include mixed uses within an MUR Zone shall be 12 units per gross acre. Exception: Ifless than 20 units per gross acre are provided, the development shall include a minimum of 10 percent of the total gross floor area in nonresidential uses. 3. There shall be no maximum residential densities are established for the MUR district. Building heights shall regulate maximum densities. c) Nonresidential Uses. Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-23 . 1. Nonresidential uses in the MUR district shall not exceed 5,000 sq. ft. of ground floor area for each separate use and shall be limited to a maximum of 20 percent of the total gross floor area in the development area. 2. Nonresidential uses shall be developed as part of a mixed use building that includes housing shall be developed to maintain a minimum density of 12 dwelling units per acre. When a development site is composed of two or more phases, each phase shall also meet this standard. Exception: Civic uses shall not be a permitted use in the MUR district. d) All development in the MUR district complies with the standards specified in Section 16.110 Multi-Unit Design Standards. Exception: Section 16.110 (e) 1 of this Code exempts multi-unit developments in mixed- use buildings from the minimum open space standards. 40.130 PHASED DEVELOPMENT. (1) If development is planned to occur in phases, a phased ,development plan shall be submitted concurrently with the Site Plan application specified in Section 31.020 of this Code and shall . include the following information: a) The North arrow and property boundaries and dimensions. b) Existing buildings and dimensions with distanC(es from property lines and other buildings. c) The location of future right-of-way dedications based on TransPlan, the adopted Local Street Network Plan and the block length and size standards specified in Section 40.100(5) ofthis Article. d) A redivision plan at the minimum density required by this subsection, for any lot that is large enough to further divide or a plot plan showing building footprints for MUC minimum densities. e) The location of natural resources, regulated wetlands, natural drainage/stormwater management areas and wooded areas showing how future development will address preservation, protection or removal. f) Adopted public facilities plans. g) The intended use, residential, commercial, and/or industrial and size in square feet of each building. . Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-24 . . . h) The ratio of the square footage of each intended use, residential, commercial, and/or industrial to the total square footage of the buildings in each phase of the development. (2) Site plan review shall include the monitoring of the ratio of uses to ensure thatthe proposed development maintains the ratio of: a) Commercial and non-commercial uses as specified in Subsection 40.120(1)(a) of this Article; or b) Industrial and non-industrial uses as specified in Subsection 40.120(2)(a) of this Article; or c) Residential and non-residential as specified in Subsection 40.120(3)(a) ofthis Article. Draft Article 40- Mixed-Use Zoning Districts October 2001 Attachment 2-25, ATTACHMENT 3 . r Article 41: Noda I Development Overlay District (INDO) . Arterial Illustrative Site Plan March 2002 . Draft Article 41- Nodal Development Overlay District Attachment 3-1 . ARTICLE 41 NODAL DEVELOPMENT OVERLAY DISTRICT (/NOD) 41.010 ESTABLISHMENT OF THE NODAL DEVELOPMENT OVERLAY 41.020 ALLOWED USES AND SPECIAL USE LIMITATIONS. 41.030 LOCATION STANDARDS 41.040 MINIMUM DENSITY AND GENERAL DEVELOPMENT STANDARDS 41.050 DEVELOPMENT STANDARDS FOR SINGLE FAMILY AND MULTI-UNIT RESIDENTIAL USES 41.060 SPECIFIC DEVELOPMENT STANDARDS FOR COMMERCIAL, LIGHT- MEDIUM INDUSTRIAL, SPECIAL LIGHT INDUSTRIAL, AND MIXED- USES . . Draft Article 41- Nodal Development Overlay District Attachment 3-2 . ARTICLE 41 NODAL DEVELOPMENT OVERLAY DISTRICT 41.010 ESTABLISHMENT OF THE NODAL DEVELOPMENT OVERLAY (1) PURPOSE The Nodal Development Overlay District (INDO) is established to work in conjunction with underlying zoning districts to implement transportation related land use policies found in the Eugene-Springfield Area Transportation Plan (TransPlan) and in the Eugene-Springfield Metro Area General Plan. The INDO District also supports "pedestrian- friendly, mixed-use development" as outlined in the State Transportation Planning Rule. Design standards forthe INDO District are structured to foster the essential characteristics of pedestrian-friendly, human scale development that define "nodal development." These include: . a) Design elementsthat support pedestrian environments and encourage transit use, walklng and bicycling; b) Transit access within walking distance (generally J/4 mile) of anywhere in the node; c) Mixed uses and a core commercial area so that services are available within walking distance; d) Public spaces, such as parks, publicand private open space, and public facilities that can be reached without driving; and e) A mix of housing types and residential densities that achieve an overall net density of at least 12 units per acre. It is important to note that the nodal development overlay district works uses the design and development standards found in Article 4D-Mixed-Use Zoning Districts, as a basis for achieving pedestrian- friendly design. As such, there are frequent references in this article to ' standards found in Article 40. The overlay district is needed to add those special standards and prohibitions that help define a nodal deve10pment,area under TransP1an. (2) APPLICABILITY The Nodal Development Overlay District provisions and standards supplement those of the applicable underlying zone and other applicable overlay zones. Where the INDO District and base zone provisions conflict, the more restrictive controls. The overlay zone applies to all property where INDO is indicated on the Springfield Nodal Overlay Map, except where the property is an historic property according to Artlcle 30 of this code. The INDO District requirements described in this Article apply to the , following: ' - . . a) New development on vacant land. b) New structures on already developed sites, such as conversion of a parking area to a structure or demolition of a structure and construction of a new structure. c) An expansion of 50% or more of the total existing building square footage on the development site. ' Draft Article 41- Nodal Development Attachment Overlay District 3.3 . d) The INDO standards in this Article do not apply to a building alteration. e) Single family dwelling units for which building permits were filed prior to the designation of an area for nodal development shall be exempt from Section 5.030 of this Code and from the standards of this Article for the purposes of reconstruction if such a dwelling unit is partially or completely destroyed or if the dwelling undergoes renovation. Room additions or other expansions typical of a single-family use shall also be allowed. ' 2) REVIEWPROCEDURE All multi-unit residential, commercial and industrial development proposals within the Nodal Development Overlay Zone shall be reviewed as Type II Limited Land Use decisions, in accordance with Article 3, as part ofthe Site Plan . Review process specified in Article 31. The Director may also determine that a development within the Nodal Development Overlay district is subject to a higher level of r~view (i.e., Type III versus Type II), when it is in the public interest 41.020 ALLOWED USES AND SPECIAL USE LIMITATIONS. . (1) ~llowed Uses. The table below shows the schedule of allowed uses within each base zone. With some exceptions, the activities allowed within the base zone are also allowed, within the INDO District. The INDO District adds the flexibility of mixing compatible uses ona given site: Mixed-use development is encouraged within the INDO District. Certain auto oriented uses listed in subsection two (2) below, are prohibited within the district. Base Zone Allowed Use Cate20ries NC, CC, MRC, GO, MUC, MS Those uses allowed within Mixed-Use CommercialMUC District in Article 40.020 of this code. LMI, SLI, HI, MUE Those uses allowed within Mixed-Use Employment MUE District in Article 40.020 of this code. MDR, HDR, MUR Those uses allowed within Mixed-Use Residential MUR District in Article 40.020 . of this code. LDR Those uses allowed within the Low Density Residential zone as described in Article 16.020 of this code. (2) Prohibited Uses. . a) Car washeS. b) Auto Parts stores. c) Recreational vehicle and heavy truck, sales/rental/service. d) Motor vehicle sales/rental/service. e) Service stations, including quick servicing. , Draft Article 41- Nodal Development Attachment Overlay District 3-4 . f) Tires, sales/service. g) Transit park and ride, major or minor, except under a shared parking arrangement with another permitted use. h) Agricultural machinery rental/sales/service. i) Boats and watercraft sales and service. j) Equipment, heavy, rental/sales/service. k) Manufactured dwelling sales/service/repair. 41.030 LOCATION STANDARDS When establishing the location and boundaries of a Nodal Development Overlay, the following criteria shall be considered: (1) The INDO shall be applied to the mixed-use centers or "nodes" identified by the City in response to Its responsibility under TransPlan. (2) All parcels included within a INDO should be located within 1/4 mile of a transit stop, and shall have near its center a commercial or employment core area. 41.040 MINIMUM DENSITY AND GENERAL DEVELOPMENT STANDARDS . The General Development Standards for Mixed-Use described in Section 40.100 describe the pedestrian-friendly and transit oriented design standards that shall apply to mixed use and nodal development. These standards shall apply to development within the INDO. In addition to those standards found in Section 40.100, the following shall apply: (1) Minimum Density and Floor Area Ratio (FAR). FAR= Means the amount of gross floor area of all buildings and structures on a building lot divided by the total lot area. A two story building that covers50% of a lot would have aFAR of 1.0. Typical suburban FAR's range from 0.3 to 1.0 in mixed-use centers. a) Where the base zone is LDR, 'new subdivisions shall achieve a minimum residential density of 6 units per net acre. Minimum residential density in MDR or MUR shall be 12 units per net acre; in HDR it shall be 25 units per net acre. The combined net residential density within a node or mixed-use center shall be 12 units per acre or more. b) Where the base zone is NC, CC, MRC, MUC, or GO, the minimum floor area ratio (FAR) shall be 040. c) Where the base zone is LMI, SLI or MUE, the minimum FAR shall be 0.25. . (2) Building Setbacks. Draft Article 41- Nodal Development Overlay District Attachment 3-5 . a) Buildings occupied by commercial and industrial uses shall be set back a maximum of20 feet from the street. There is no minimum setback from the street for commercial and industrial uses. .b) Residential uses shall be set back a maximum 25 feet from the street. c) Where the site is adjacent to more than one street, a building is required to meet the above maximum setback standards on only one of the streets. (3) Parking Between Buildings and the Street. a) Automobile parking, dnving, and maneuvering areas shall not be located between the main building( s) and a street. b) F or sites that abut a street, parking shall be located at the rear of the building or on one or both sides ofa building when at least 40 percent>ofthe site frontage abutting the street (excluding required interior yards) is occupied by a building and/or an enhanced pedestrian space. Exception: These parking standards shall not apply where the base zone is LDR. . 41.050 SPECIFIC DEVELOPMENT STANDARDS FOR SINGLE FAMILY AND MUL TI-UNIT RESIDENTIAL USES (1) Detached Single Family, 2-Unit Attached Single Family, & Duplexes a) Building Orientation and Connectivity to the Fronting Street. Dwelling units shall have a front door opening directly to the fronting street. A minimum 3-foot wide walkway shall connect the front door to the street. The walkway shall be constructed of a permanent hard. surface (not gravel) and located directly between the street sidewalk and the front door. This walkway shall not be part of the driveway area. b) Garage Doors. Garage door placement and design shall meet the following conditions: 1. Garage door openings facing a fronting street shall not exceed 40% of the width of the house facade. . 2. The garage facade shall be set back a minimum of 4 feet from the house facade. The minimum setback of the garage facade is reduced to 0 feet if the house facade has a porch, 50 square feet or more in size, encroaching into the setback. Draft Article 41- Nodal Development Overlay District Attachment 3-6 . c) Windows. A minimum area of 15 percent windows and/or dwelling doors on facades facing fronting streets, sidewalks, and multi-use paths (including garage facades). , Gabled areas do not need to be included in the base wall calculation when determining the minimum 15 percent calculation for windows/doors. d) Design Variety., Each home shall incorporate a minimum of three (3) of the following seven (7) building design features. Applicants shall indicate which options they are proposing on plans submitted for building permits. While not all of the design features are expressly required, the inclusion of as many as possible is strongly encouraged. 1. Roof Pitch & Design. A minimum 4 to 12 roofpitch. 2. Eaves..' Eaves with a minimum 18-inch overhang. 3. Building Materials. At least two (2) different types of building materials (including, but not limited to stucco and wood, brick and stone, etc.) or a minimum of two different patterns of the same building material (e.g., scalloped wood and lap siding, etc.) on facades facing streets. These requirements are exclusive of foundations and roofs, and pertain only to the walls of a structure. . 4. Trim. A minimum of 2.25-inch trim or recess around windows and doors that face the street. Although not expressly required, wider trim is strongly encouraged. 5. Increased Windows. A minimum area of20 percent windows and/or dwelling doors on facades facing streets, sidewalks, and multi-use paths (including garage facades). Gabled areas do not need to be included in the base wall calculation when determining the minimum 20 percent calculation for windows/doors. 6. Architectural Features. At least one architectural feature included on a dwelling facade(s) that faces the street. For the purposes of this provision, architectural features are defined as bay windows, covered porches greater than 60 square feet in size, second floor balconies, dormers related to living space, or habitable cupolas. If a dwelling is oriented such that it's front facade (facade with the front door) is oriented to a sidewalk and no facades ofthe dwelling face a street, then the architectural feature may be counted if it is located on the facade of the dwelling that faces the sidewalk and contains the front door. . 7. Architectural Details. Architectural details used consistently throughout the construction of the dwelling facades that face streets. For the purposes of this provision, architectural details are defined as exposed rafter or beam ends, eave Draft Article 41- Nodal Development Overlay District Attachment 3-7 brackets, gridded windows or windows with divided lites, or pergolas/trellis work integrated into building facades. Other architectural details may be approved by the Director. If a dwelling is oriented such that it's front facade (facade with the front door) is oriented to a sidewalk and no facades of the dwelling face a street, then the architectural details may be counted if they are located on the facades of the dwelling that face the sidewalk. . e) Compatibility. New detached single family, 2-unit attached single family, and duplexes constructed within the nodal development overlay district should be generally compatible with existing homes. The goal is to reduce the impact of new development on established neighborhoods by incorporating elements of nearby, quality buildings, such as building details, massing, proportions, and materials. To foster compatible residential development at the higher densities sought by this Article, the following standards shall apply. 1. Front Yard Setbacks for Buildings in Established Residential Areas. When an existing single family residence is located within 25 feet of the subject site and fronts on the same street as a proposed building, a front yard setback similar to that of the nearest single family residence shall be used. "Similar" means the setback is within 5 feet of the setback of the nearest single family residence. For example, if the existing single family residence has a front yard setback of 20 feet, then the new building shall.have a front yard setback between 15 and 25 feet. If there are two adjacent single family residences fronting on the same street, then an average measurement shall be taken using the two adjacent residences. In no case shall the front yard setback be less than 10 feet. This standard shall not cause a front yard setback to exceed 25 feet. . Similar Setback Not This Illustration taken from the Infill and Development Handbook, Oregon TGM Program Sept. 1999 2. Building Height Transition. Taller buildings shall step-down to provide a height transition to existing single story buildings. This standard applies to new and vertically expanded buildings within 25 feet (as measured horizontally) of an Draft Article 41- Nodal Development Attachment Overlay District 3-8 . . existing single story building. The standard is met when the height of the taller building or portion of the taller building does not exceed the height of the shorter building by more than 5 feet within the 25 foot horizontal zone. This horizontal zone is called the height transition zone. When the owner of an existing single story home also owns an adjacent vacant lot, the height transition zone between the vacant lot and a new taller building shall be 15 feet as measured from the property line between the vacant lot and the new building. C I=~ . . g u .~ c;. IS, ~ Height Umit~ 5 feet , , Height Transition Zone= 2 feet from the shorter building. .. Height Transition Zone from a vacant lot ili common ownership with the shorter building= 15 feet from the property line. . Illustration taken from the Infill and Development Code Handbook, Oregon TGM Program Sept. 1999, 3. Massing and Scale. The scale, proportions, massing and detailing of any proposed building shall be in proportion to that of the block face where the building will be located. Proposed new low density residential development in the nodal development overlay shall comply with the design guidelines shown in A-C below: A. Scale. Relate the size and proportions of new structures to the scale of adjacent buildings. Avoid buildings that in height, width, or massing, violate the existing scale of the area. Recommended Avoid . Illustration taken from the Infill and Development Code Handbook, Oregon TGM Program Sept. 1999 Draft Article 41- Nodal Development Overlay District Attachment 3-9 . B. Massing. Break up uninteresting boxlike forms into smaller, varied masses. Avoid single monolithic forms that are not relieved by variations in massing. Recommended Avoid Illustration taken from the Infill and Development Code Handbook, Oregon TGM Program Sept. 1999 c. Roof Shapes. Relate new roof forms to those found in the area. Avoid roof shapes, directional orientation, pitches, or materials that would cause the building to be out of character with quality buildings in the area. lJi ~ ^;l\\;~f . Recommended Avoid Illustration taken from the Infill and Development Code Handbook, Oregon TGM Program Sept. 1999 (2) Multi-Unit Residential Uses (e.g. attached single family dwellings 3 units or greater, townhomes, rowhouses, triplexes, fourplexes, apartments, etc.) Multi-unit residential dwellings shall comply with the design standards specified in Article 16.110-Multi-Unit Design Standards and in Article 40.110(3) Mixed Use Residential. 41.060 SPECIFIC DEVELOPMENT STANDARDS FOR COMMERCIAL, INDUSTRIAL, AND MIXED-USES .. . Draft Article 41- Nodal Development Overlay District Attachment 3-10 . Specific development standards for commercial, industrial and mixed-uses within the INDO shall conform to those standards set forth in Article 40.110. (1) Commercial and Civic Uses. Commercial uses shall comply with the special development standards specified in Article 40.110 (1). (2) Light Industrial and Special Light Industrial (Campus Industrial) Uses. Industrial .. uses shall comply with the development standards specified in Article 40.110 (2). (3) Mixed-Uses. For mixed use developments, the dominant use of the building or development (dominant is defined as the use represented by the greatest floor area) shall determine the applicable development standards. . lfthe dominant use is residential, the applicable subsection section of 41.050 Development Standards For Single Family And Multi-Unit Residential Uses shall apply. lfthe dominant use is commercial, section 41.060(1) Development Standards for Commercial and Civic Uses shall apply. lfthe dominant use is industrial, section 41.060(2) Development Standards for Light Industrial and Special Light Industrial Uses shall apply. . . Draft Article 41- Nodal Development Overlay District Attachment 3-11 ATTACHMENT 4 . , Public Comments and Response by Staff First Reading of the Article40-Mixed-Use and Article 41-Nodal Development Overlay . April 15, 2002 The following is a summary of the public comment received by staff during the time the record was held open after the first reading ofthe Mixed-Use and Nodal Development Articles. The actual comments received in the days following the Apri115 hearing are attached. Some issues raised by the public and Council members as part of the record are also addressed below. Name Tom R. Bowerman 33707 McKenzie View Eugene, OR 97408 Dr. Donald McCormack 521 5th Street Springfield, OR 97477 Rob Zako 1280-B E 28th Eugene, OR 97403 Summar of Comments Mr. Bowerman expresses concern about the lack of a building height limit for Mixed-Use Commercial. He believes lack of a building height restriction will allow high rise buildings (cites Ya-Po-Ah Terrace) to be constructed in mixed-use zones and compromise human scale development. He recommends a height limit of 5 stories or 55 feet. Dr. McCormack attached an excerpt from the book, Suburban Nation, by Andres Duanny, that includes a "The Traditional Neighborhood Development Checklist." He encourages use of the checklist when considering the new codes. Mr. Zako expresses support for Springfield's efforts to implement mixed-use. He is concerned about verbal expressions of skepticism made by staff conceming whether nodal development will achieve the objective of reducing per capita VMT. He is also concerned about allowin the Attachment 4.1 Staff R~s onse Human sCpledevelopment is defined in various ways. Some publiCations recommend a building height to street width rati(;fof1:2 or 1:3 to retain human scale development.lnSpringfield, such ratios would cap development 'at 3-4 stories in most areas. Staff believes that such':a. cap is l.mreasonable and that market demand should he" taken into account. Achieving~greater development density in nodes requires multi-story buildings Multi-story buildings exceeding the ratios $ugg~stecl above can be attractive and suitable for inclusion in nodes. Staff supports the suggestion of a five story riITiit, with a provision that taller structures can be considered with Planning Commission review under Article 10~Disi::retionary Use. Staff recommend addition of the following language to Article 40: 40.060 (1 )-Height Standards "The maximum height for buildings in the MUC shall be 60 feet. Proposals for buildings exceeding 60 feet can be considered under Article 10 Discretionary Use where such proposals can be shown to meet the criteria for approval listed in Section 10.030 (1).(3)." Articles 40 and 41 implement most of the elements on the "Checklist." The basic tenants of mixed-use and nodal development are similar to those of "Traditional Neighborhood Design," as well as pedestrian-friendly design and transit oriented development. Staff has expressed personal skepticism about the transportation outcomes of nodal development. However, the City has fully supported TransPlan's altemative performance measures and the focus of staff has been to fully implement the elements required by TransPlan for nodal develo ment. Larry Reed Arlie & Company 722 Country Club Rd. Eugene, OR 97401 City Council "flexibility" in applying mixed-use and nodal development policy as requested by PeaceHealth. Mr. Zako makes the following recommendations: · Strengthen the height standards in Article 41. · Amend the Purpose section in Article 41 to include a more specific and clear but flexible definition of nodal development against '. which proposed designs can be measured. · Strengthen location standards so that every nodal development overlay district is certain to have a transit stop that serves the district well. · Findings that Article 41 is likely to lead to reduced reliance on the automobile should be issued prior to adopting the codes. · If staff and officials believe that Article 41 is unlikely to lead to a significant reduction in reliance on the auto then the code should be reviewed with the intent of making it more effective in doing so. · Staff and officials should assert ownership of the TransPlan alternative performance measures and affirm their commitment to the principals presented to LCDC for approval. Expresses concem that mixed-use can only be implemented in those areas zoned for it or where mixed use is designated in a refinement plan. Out of that concern, several observations are made about the relationship of government to development. There is concem that the designation of land for mixed-use by the City will drive up the prices and make the aggregation of land for mixed use development more difficult. "Government can't legislate into existence great projects, or even good projects. With pre- designation in place, the City may never be able to do a larger coordinated Qevelopment tin the Glenwood area..." Council members expressed the desire to ensure that single-family homes built prior to rezonin to mixed use or rior to jm lementation Attachment 4.2 Articles 40 and 41 include many design elements that were not required by TransPlan, but that are commonly held as important elements of pedestrian-friendly, transit- oriented design. Staff has sought to create code language that will make nodes and mixed-use centers attractive, livable and marketable. The location standards found in Article 41 are consistent with TransPlan direction, maintaining node locations that are within % mile walking distance of transit corridors. Staff makes no specific recommendation in response to Mr. Zako's comments apart from the recommendation to place a height restriction on development in the MUC as mentioned in response to Mr. Bowerman's comments. The City is required by order of the Oregon Land Conservation and Development Commission to formally identify 400 acres for designation as nodes. Govemment cannot legislate great developments, but it is responsible for setting minimum development standards that ensure public safety and implement state mandated policies. Mixed-use can be applied outside of nodes in those areas zoned for mixed use. The City strategy is to begin establishing mixed-use where existing refinement plans or specific development plans call for it. A developer has the prerogative to initiate an amendment to an existing refinement plan or to complete a specific development plan for a development area that calls for mixed-use. Staff recommends adding the following language to Articles 40 and 41: Phillip Farrington Peace Health . , of a nodal overlay, could be rebuilt if extensively damaged or destroyed, without conforming to the new standards called for in Articles 40 and 41. Mr. Farrington expressed the need for flexibility in applying Articles 40 and 41. He also criticized the maximum limitation on parking as being too low compared to other "communities. It is assumed by staff that at least part of his concern is for the parking allowed for medical uses. Attachment 4-3 40.010 (4) Applicability "Single family dwelling units in the MUR zone for which building permits were filed prior to the designation of an area for nodal development shall be exempt from Section 5.030 of this Code and from the standards of this Article for the purposes of reconstruction if such a dwelling unit is partially or completely destroyed or if the dwelling undergoes , renovation. Room additions or other expansions typical of a single.family use shall also be allowed." 41.020(2) (e)-Applicability "Single family dwelling units for which building permits were filed prior to the designation of an area for nodal development shall be exempt from Section 5.030 of this Code and from the standards of this Article for the purposes of reconstruction if such a dwelling unit is partially or completely destroyed or if the dwelling undergoes renovation. Room additions or other expansions typical of a single.family use shall also be allowed." Staff reviewed the Institute of Transportation Engineers (ITE) Parking Generation Report (1985) and found that' the number of parking spaces required for commercial, uses in the Springfield Development Code was in line with the parking generation studies in the ITE Report. The report describes an average parking generation rate of 1 space for each 385 square feet of gross floor area. [SDC 18.070 (4) Business and professional offices and personal services, requires 1 space fofeach300 square feet of gross floor area.] The Development Code groups parking for medical/dental uses together with business and professional office uses. The ITE manual recommends higher parking minimums for medical uses (medical/dental clinics and hospitals) than for business and professional offices. Staff clarifying the policy for off-street parking to read: 4.070(1 )(a)(2)-Off.Street Parking Standards "The maximum number of parking spaces allowed shall not exceed 120% of the minimum parking requirement for the various use categories described in Section 18.070 of this Code for commercial uses and Section 20.070 of this Code for industrial uses. The Director may increase the allowed number of parking spaces based on a parking generation study, usin statistical anal sis from the Institute of . Arlie & Company LAND AND INVESTMENTS April 26, 2002 City of Springfield 225 5th Street Springfield OR 97477 Attn: Mark Metzger, Planner Dear Mayor and City Council members, This letter is not meant to disparage work that haS been done by City staff in developing the Nodal and Mixed-use Zoning District Or~in~ces. I know they have worked hard; the thought processes the City staff have gone through are very similar to a private planner's work relating to how a mixed-use development goes together, including writing a development's design guidelines and CC&Rs. As a private land use planner, I have concerns however, about over regulation, projects being bogged down and delayed by proc\;sses, and by the lack of development flexibility. . It appears .that mixed-use developments can only occur in areas zoned Mixed-Use as shown on the Springfield zoning map. Secondly, Mixed-Use zoning districts will only be granted in areas designated for mixed-use on the City's adopted refinement plan, specific area plans, and specific development plans. My concerns bring forth the following' comments. -, .' . Developers, in many areas of this nation, have been able to support livability, housing, jobs, and commerce on many fronts through active partnerships with government without mixed-use zoning districts, their accompanying detail regulations, and market studies. Development projects.are paid for by land owners! developers/builders, not government. :.),. 0#" :,~~' · Good projects and cutting-edge developments come about through a delicate balance ' of obtaining land at the right price, demand/market forces, and the bottom line business calculations (such as risk, are there better places to spend the capital) all coming together so as to allow the project to happen. · Will the City's pre-selection of mixed-use districts and the accompanying market studies "mess up" this balance? The effect of the City raising the level of awareness by doing neighborhood visioning, specific development plans, market studies, etc. is that: . . 722 Country Club Road Eugene, Oregon 97401 arlieco@presys.com PI:fONE 5~'5500 FAX 541.485.2550 . o The current non-developer property owners have a "distorted" idea of what the property is worth, making the private acquisition of the land for development difficult to justify purchasing. o It's the developer that must put the land together (without any guarantees that all the land can be acquired). It's the developer who must pay for all the environmental studies (surveys, wetlands, biological, historic, arborist, soils, seismic, reports, etc.) and hire the design team (architect, civil engineers, traffic engineers, landscape designers, etc.). Even for smaller projects the costs are extremely high (for 2-10 acres, these costs often exceed $80,000.00; on larger projects, % million dollars). It's the developer who must have the vision that leads to the creation of development projects. Secondly, there are the costs of government review and approval, including the cost of money over time, and then the projects are "always subject to appeal. And lastly, there;s the cost of the construction drawings and the contract cost for the building of streets, sidewalks, storm drainage, sanitary sewers, utilities, etc. The City's pre-designation, including all of these new rules, will drive up the costs to such a high level that , the developer cannot justify proceeding with the development. . · Government can't legislate into existence great projects, or even good projects. With pre-designation in place, the City may never be able to do a larger, coordinated development in the Glenwood area unless the City is going to find the money to actually purchase the land under its power of imminent domain laws. And lastly, it is doubtful that any developer will be able to put together Mixed-Use developments in Springtield. ' " J lfthe City must pre-select Mixed-Use areas, couldn't there still be a process that would continue to allow a developer to find other equally ~ood land to do innovative, unique developments and get approval for Mixed-Use zoning without having to be pre-selected, including being identified in TransPlan or a Refinement Plan? "" The following information I am sharing reluctantly with the City for fear the ~aterial will end up as additional laws in Section 40.110 of the Mixed Use Zoning DistrictOrdinance. The attached design guidelines should not be adopted as laws (inflexible standards), because they only end up frustrating good developers and designers. It's important to remember that not every guideline should be applied to every site or situation. There is a better way. I've attached how l, as a former planning director, have handled design guidelines in development codes. I have attached an example of a portion of a new development code that won the 1992 National American Planning Association Award for Best Planning Implementation Document. Guidelines are intende<;l to compliment the mandatory regulations adopted in ordinances (laws) by the City by providing good examples of possibly appropriate design solutions. These guidelines were in their own section on different colored pages from the actual code (The law). . Such a guideline section (see attached) would give developers and designers, that are not very good at what they do, some quality ideas without the inflexibility of making them the law. If these types of design ideas are adopted by ordinance, City staffhas no choice 4-5 . but to enforce them when, in some speCific cases~ it maY not make sense. Remember, you can't legislate quality design. The desigii ~ommunity would be much more accepting of guidelines as suggestions that are generally Interpreted as good design 'as opposed to ' trying to force them upon the development conithunity. Please call me at 344-5500 if you have any questions, or I would be glad to. meet with City Council in a Study Session to answer questions. ~~ ed, Director of Planning and Development . . 4-6 . . . ",>.. COMMERCIAL DESIGN GUIDELINES - G19.06 G19.06.060 COMMERCIAL DEVELOPMENT DESIGN GUIDELINES 1. GENERAL The foUawing design guidelines tire intended as a reference framework to assist the desig- ner in understanding the City's goals and objectives for high quality development within the commercial land use districts. The guidelines complement the mandatory site develop- ment regulations contained in this chapter by providing good examples of appropriate design solutions and by providing design interpretations of the various mandatory regula- tUr.ns. ' The design guidelines are general and may beinterpret~d with some flexibility in their ap_ plication to specific projects., The guidelines will be utilized during the City's design review process to encourage the highest level- of design quality while at the same time providing the flexibility necessary to encourage creativity on the part of project designers. 2. APPLICABILI1Y The provisions of this section shall apply to all commercial development within the City, except within the dawntaum area, CR-2 District, which is regulated by the Main Street Overlay District. Any addition, remodeling, relocation, or construction requiring a build- ing permit within any commercial land use district subject to review by the Development Review Committee shall adhere to these guidelines where applicable. 3. GENERAL DESIGN PRINCIPLES , A. DESIRABLE ELEMENTS OF PROJECT DESIGN , The qualities and design elements for commercial structures that are most desirable include: . 1. Richness of surface and texture 2. Significant wall articulation (insets, canopies, wing walls, trellises) 3. Multi-planed, pitched roofs 4. Roof overhangs, arcades , 5. Regular or traditional windaw rhythm 6. Articulated mass and bulk _, 7. Significant landscape and hardscape elements 8. Prominent access driveways 9. Landscaped and screened parking 10. Comprehensive sign program nA1i 5/91 COMMERCIAL DESIGN GUIDELINES - G19.06 B. UNDESIRABLE ELEMENTS . The elements to avoid or minimize include: 1. Large blank, unarticulated stucco wall surfaces 2. Unpainted concrete precision block walls 3. Highly reflective surfaces 4. Metal siding on the main facade 5. Plastic siding 6. Square "boxlike" stJ:udures 7. Mix of unrelated styles (i.e. rustic wood shingles and polished chrome) 8.' Large, out of scale signs with flashy colors , 9. VISible outdoor storage, loading, and equipment areas 10. Disjointed parking areas and. confuSing. circulation, patterns 4. SITE PLANNING Placement of structures should consider the existing built context of the commercial area, the location of incompatible land uses, the location of major traffic generators as well as an analysis of a site's characteristics and particular influences. . Structures should be sited in a manner that will complement the adjacent structures. Sites should be developed,in a coordinated manner to provide order and diversity and avoid a jumbled, confused development. B. Whenever possible, new structures should be clustered. This creates plazas or pedestrian malls and prevents long "barracks-like" raws of structures. When clustering is impractical, a visual link between separate structures should be established. This link can be accomplished through the use of an arcade system, , trellis, or other open structure. A. "'~, ~.. I . I I , CLUSTER BUILDINGS ON THE SITE TO CREATE PEDESTRIAN AREAS DO NOT SEPARATE BUILDINGS WITH PARKING LOTS n~ 5/91 . . . ,', '.1-', COMMERCIAL DESIGN GWDELINES - G19.06 c. Locate structures and on-site circulation systems to minimize pedestrian/ vehicle conflicts where possible. Link structures to the public sidewalk where pos- sible with textured paving, landscaping, and trellises. D. Recognize the importance of spaces between structures as "outdoor. rooms" on the site. Outdoor spaces slwuld have clear, recognizable shapes that reflect .care- ful planning and are not simply "left over" areas between structures. Such spaces should provide pedestrian amenities such as shade, benches, fountains, etc. E. Freestanding, singular commercial structures should be oriented with their 71Uljor entry toward the street where access is provided, as well as having their 71Uljor facade parallel to the str~et. F.Loading facilities slwuld not be located.at. the front of structures where it is difficult to adequately screen them from view. Such facilities are nioreap- propriate at the rear of the.sitewhere special screening 71Uly not be required. ' G. Open space areas slwuld be clustered into larger, predominant land- scape areas rather than equally distributing them into areas of low impact such as at building peripheries, behind a structure or areas of little impact to the public view, where they are not required as a land use buffer or as a required yard setback. Loading areas should be located at rear of structure Create plazas In prominent locations. PROPERTY LINE ~'tI ,~ ~ . .! g e -a;; ..-..-.. -.,. -.. ., ,F;::::. 1 I I I I I J i{iii(i I . :~ ~~~,~,rM :'Creote plazas In ~ . ~~ peela! pavement and landscape P, rominent locations. 200' MIN. enhancement at primary entrance. Preferred W.l~ 5/91 ~ " COMMERCIAL DESIGN GUIDELINES - G19.06 5. PARKING AND CIRCUlATION . Parking lot design can be a critical factor in the success or failure of a commercial use. In con- sidering the possibilities for developing a new parking area, a developer should analyze the follow- ing factors: ingress and egress with consideration to possible conflicts with street traffic; pedestrian and vehicular conflicts; on-site circulation and siroice vehicle zones; and the overall configuration and appearance of the parking area. A. Separate vehicular and pedestrian circulation systems should be provided. Pedestrian linkages between uses in commercial developments should be em- phasized,including distinct pedestrian access from parking areas in large commer- cial developments, sUch as shopping centers. "'"rl'" I . DO THIS DON'T DO THIS B. Parking aisles should be separated from vehicle circulation routes ' whenever possible. ' . C. Common driveways which provide vehicular access to more than 1 site are encouraged. D. Angled parking is preferred over 900 parking. E. Parking areas shall be landscaped, receiving interior as well as perimeter treatment in accordance with the requirements of this Development Code. ' F. Parking areas should be separated from structures by either a raised concrete walkway or landscaped strip, preferably both. Situations where parking spaces directly abut the structures should be avoided. G. Shared parking between adjacent businesses and/or developments is highly encouraged whenever practical. . H. Where parking areas are connected, interior circulation should allow for a similar direction of travel and parking bays in all areas to reduce.conflict at points of connection. n42!O 5/91 . .. . COMMERCIAL DESIGN GUIDELINES - G19.06 I. Whenever possible,locate site entries on side streets in order to minimize pedestrian/vehicular conflicts. When this is not possible, design the front site entry with appropriately patterned concrete or pavers to differentiate it from the sidewalks. , J. Parking access points, whether located on front or side streets should be located as far as possible from street intersections so that adequate stacking room is provided. The number of access points should be limited to the minimum amount necessary to provide adequate circulation. m ~ !lllt~\lil"I(I'II'1 DO THIS DON'T DO THIS Enhanced paving at main entrance K. Design parking areas so that pedestrians walk parallel to moving cars. Minimize the need for the pedestrian to cross parking aisles and landscape areas. PARKING AISLE ARRANGEMENT , ;:::: '. [, ~ ~ Discouraged Preferred 4I-W 5/91 COMMERCIAL DESIGN GUIDELINES - G19.06 . Frontage roads should be pruvided for large projects on major arterials whenever possible. . M. ' Parking areas and pedestrian walkways should be visible from structures to the greatest degree possible. ' 1. N. The parking area should be designed in a manner which links the structures to the street sidewalk system as an extension of the pedestrian environ- ment. This can be accomplished by using design features such as walkways with enhanced paving, trellis structures, or a special landscaping treatment. o. Parking areas which&lCcommodate a significant number of vehicles should be divided into a series of connected smaller lots. Landscaping and offset- ting portions of the lot are effective in reducing the visual impact of large parking areas. P. The first parking stall which is perpendicular to a driveway or first aisle juncture, should be at least 40 feet back from the curb. With larger centers, sig- nificantly more setback aretl may be required. . Q. Utilize a36inch high opaque wall or landscaping to screen any parking at ,the street periphery. A combination of walls, berms, and landscape material is highly recommended. Where practical, lowering the grade of the parking lot from existing street elevations may aid in obscuring views of automobiles while promot- ing views of architectural elements of the structures beyond. ' . 1t-niA 5191 COMMERCIAL DESIGN GUIDELINES - G19.06 . lll~ i 91l:.J9 5~~5 :z:1I.1I:1II 1Il0...c lIIlnlio ~C:l" . ~~5ffi~ iP~~!!! l1~i~~ ZCjCla. l:Il!!lI:~!!l IIlC..."... "'gj:lI:~ ~...of~ . ID II: :lcG oZo fcz c"'- I!!.s~ cj'" II:a.C fcliE 1lI~~ ...c~ 1II~1I: ::I~c i-c "!.... ",a. cO(1 ~~1II ~~i fij S! ~ :s II: j: .In "':!... ...cD cur r!j!'" . .._j:1II c€ia::~ j:::EOIQ ~~~~ 0-'1.&1,,- .~~~~ "......a:: ~~j::;; a.c"'lIl za.!:iO 5!"::Ea:: l:l :i lj, ~ c~::E.. . . . . . .. . . . . JJ=.. -.. ~ . . H H . . ... ~i ~... . !.!~fil ~ i~~ ~,~:;;~ CIllU ~~ifj ~~lI! ca::c Z~III ~Gi ~ai~ u>o t:!!J .. .. H ~ . . ~ III i .",02 i~~ ~...15 ",,,,j: Zlllli! ~9:c "'::)Il/ -05 ~i:l "'1Il0 ~~lf ~",a:: "'a.C 2:011. a::a::1Il ca.c .. ... al "'~ 1II~ D", "'a:: ::)a. oi ~c ~Iul z. i "'.. ..N C In. ~~~ >..... ~lia . . c z c6 ~:!Q ~i~ u"'s: 6j:o zoa:: c..a. :z:",'" ..1Ila:: CoC :z:...", FUU "'lIIZ a::...c ::)...a: ~j!!E "'1Il'" a: '" ",'" j::i ...~ e.... 2:0 Clll ~~ '!!~ui :llc15 00'" a.!j:c ~-I!! ...!j!u ffii~ :z:a:Z ,.co ~a.u rl~ 5/91 . . . COMMERCIAL DESIGN GWDELINES - G19.06 6. LANDSCAPING A. Landscaping for commercial uses should be used to define specific areas by helping to focus on entrances to buildings and parking lots, define the edges of various land uses, provide transition between neighboring properties (buf- fering), and provide screening for loading and equipment areas. B. Landscaping should be in scale with adjacent structures and be of . appropriate size at maturity to accomplish its intended purpose. C. Landscaping around the entire base of structures is recommended to soften the edge between the parking lot and the structure. This should be accented at entrances to provide focus. D. Trees should be located throughout the parking lot and not simply at the ends of parking aisles. In order to be considered within the parking lot trees should be located in planters that are bounded on at least 3 sides by parking area ' paving. E. Landscaping should be protected from vehicular and pedestrian encroiuh- ment by raised planting surfaces, depressed walks, or the use of curbs. Concrete . maw-strips separating turf and shrub areas are required per the development regulations. F. .Vines and climbing plants integrated upon buildings, trellises, and perimeter garden walls are strongly encouraged. A few plants to consider for this . purpose are: bougainvillea, grape ivy, and wisteria vines. .- .. .' n42~4 5/91 . . . COMMERCIAL DESIGN GUIDELINES - G19.06 Use boxed and tubbed plants in clay or wood containers, especially for enhancement of sidewalk shops, plazas, and courtyards. H.. At maturity, trees should be able to be trimmed 10 feet above . ground and shrubs should be maintained at a height of approximately 3 feet to pro- vide adequate visibility. G. 7. ,WALLS AND FENCES If not required for a specific screening or security purpose, walls should not be utilized within commercial areas. The intent is to keep the walls as low as possible while performing their screening and security functions. B. Where walls are used at property frontages/or screen walls are used to conceal storage and equipment areas, they should be designed to blend with the site's architecture. Both sides of all perimeter walls or fences should be architec- turally treated. LandScaping should be used in combination with such walls whenever possible. A. COMMERCIAL RESIDENTIAL PUBUC STREET - COMMERCIAL I I ~ Buffer seperatlon between two different uses. RESIDENTIAL 41W1 5/91 . . '.. COMMERCIAL DESIGN GWDELINES - G19.06 c. When security fencing is required, it should bea combination of solid " walls with pillars and decorative view ports, or short solid wall segments and wrought iron grill work. D. Long expanses of fence or wall surfaces should be offset and architec- , turally designed to prevent mor.zotony. l.Jzndscapepockets should' be provided. ~~~~ .. '.:'" '~'k~: ". Elevation ot Staggered Wall -t 70' t- ~~8~:' .'. ,.'~ '~~ Elevation of Planters/Wall' " . , ' , .. . . ,,~. _ L.. d"~~~~ . . ~~'~~'" " Elevation of Wall with Breaks 8. SCREENING A. Screening for outdoor storage should be a minimum of 6 feet and a maximum , of 10 feet high. The height should be determined by the height of the material or equipment being screened. Chain link fencing with redwood f" neutral colored slatting is an acceptable screening material for areas of (lny lot not visible from the street. Exterior storage should be cOnfined to portions of the site least visible to . public view. B. Where screening is required, a'combination of elements should be used including solid 11UlSonry walls, berms, and landscaping. Chainlink fencing with wood or metal slatting is not permitted when visible from the public right-of-way. ' l C. Any outdoor equipment, whether on a roof, side of a structure, or on the ground, shall be appropriately sCreened from view. The method of screening shall be architecturally integrated with the adjacent stnicture in terms of , materials,. color, shape, and size. Where individual equipment is provided, a con- tinuous screen is desirable. HORIZONTAL WOOD TREWS FLAT ROOF . ~11t 5191 . . . COMMERCIAL DESIGN GUIDELINES - G19.06 9. ARCHITECTURAL DESIGN GUIDELINES A. Heights of structures should relate to adjacent open spaces to allow mIlXimum sun and ventilation, protection from prevailing winds, enhance public views of surrounding mountains and minimize obstruction of view from adjoin- mgsuuctures. ; B. Height and scale of new development should be compatible with that of surrounding development. New development height should "transition" from the height of adjacent development to the maximum height of the proposed suucture. C. Large buildings which give the appearance of "box-like" stnlctures are generally unatuactive and detract from the overall scale of most buildings. ',There are several ways to redru:e the appearance of.large scale, bulky suuctures. 1. Vary the planes of the exterior walls in depth and/or direction. . Wall planes should not run in 1 continuous direction for more than 50 feet without an offset.. 2. Vary the height of the buildings so that it appears to be divided into distinct massing elements. 3. Artfculatethe different parts of a building's facade by use of'color, arrangement oflacade elements, or a change in materials. . 4. Use landscaping and architectural detailing at the ground level to , lessen the impact of an otherwise bulky building. 5. Avoid blank walls at the ground floor levels. Utilize windaws, uellises, wall articulation, arcades, change in materials, or other features.. 6. All structure elevations should be architecturally ueated. AWNINGS OF THE SAME FORM AND LOCATION ARE REPEATED, WITH THE SIGNAGE ON THE AWNING'S VALANCE. VARYING ROOF PLANES, SETBACKS AND ARTICULATED FRONT FACADES ADD A PEDESTRIAN SCALE. ~w 5/91 . . . COMMERCIAL DESIGN GUIDELINES - G19.06 Undesirable Architectural Horizontal Articulation Added Treatment 'Vertical Articulation Added ,Multi Planed Roofs and Awnings Add Desirable Articulation D. Scale, for purposes here, is the relationship between the size of the new structure and the size of adjoining permanent structures. It is also how the proposed building's size relates to the size of a human being (human scale). Large scale building elements will appear imposing if they are situated in a visual en- vironment which is predominantly smaller in scale. Building scale can be reduced through the proper use of window patterns, structural bays, roof overhangs, siding, awnings, 11Wldings, fix- tures, and other details. 1. 2. The scale of buildings should be carefully related to adjacent pedestrian.area5 (i.e. plazas, courtyards) and other structures. 3. Large dominating structures should be broken up by: 1) creating horizontal emphasis through the use of trim; 2) adding awnings, eaves, windows, or other architectural ornamentation; 3) use of combinations of complementary colors; and 4) landscape materials. Storefront elements and pedestrian level details provide an intimate seale Form and texture shall be repeated in a manner to provide a senSe of unity within a large. mass. n4~ 5/91 . . .. COMMERCIAL DESIGN GUIDELINES - G19.06 The use of standardized" corporate" architectural styles associated with chain- type restaurants is strongly discouraged. ' F. Much of the existing color in the City is derived from the primary building's finish materials such as brick, wood, stucco, and terra cotta tile. Also dominant are earth tones that match these natural materials. E. 1. Large areas of intense white color should be avoided.' While . subdued colors usually work best as a dominant overall color, a bright trim color can be appropriate. "2. The color palette chosen for new structures should be compatible with the colors of adjacent structures. An exception is where the colors of ad- jacent structures strongly diverge from these design guidelines. 3. Wherever possible, minimize the number of colors appearing on the structure's exterior. Small commercial structures should use no more than 3 colors. 4. Primary colors should only be used to accent elements, such as door and window frames and architectural details. 5. Architectural detailing should be painted to complement the facade and tie in with adjacent structures. ~ 5/91 . . . . COMMERCIAL DESIGN GUIDELINES - G19.06 Partial mansard roof discouraged Clipped roof to hide rooftop equipment Full mansard roof will hide rooflop equipment 10. ROOFS A. The roofline at the top of the structure should not run in continuous plane for more than 50 feet without offsetting or jogging the roof plane. , , All roof top equipment shall be Screened from public vieiD by screening materials of the same nature as the structure's basic materials. Meclulnical equip- ment should be located below the highest vertical element of the building. C. -The following roof materials should not be used: B. 1. Corrugated metal (standing rib metal roofs are permitted) 2. Highly reflective surfaces (copper roofs may be considered) 3. Illuminated roofing 11. AWNINGS A. The use of awnings along a ruw of contiguous, structures should be restricted to awnings of the same form and location. Color of the awnings should be consistent and a minimum 8 foot vertical clearance should be maintained. B. Signs on awnings should be painted on and be limited to the awning's flap (valance) or to the end panels of angled, curved, or box awnings. C. Plexiglas, metal, and glossy vinyl iUuminatedawnings are strongly discouraged. Canvas',treated canvas, matte finish vinyl, and fabric awnings are encouraged. D. Internally lit awnings should not be used. n~ 5/91 . . . COMMERCIAL DESIGN GUIDELINES - G19.06 12. SIGNS A. Every structure and commercial complex should be designed with a precise concept for adequate signing. Provisions for sign placement, sign scale in relation- ship the with building, and sign readability should be considered in develaping the signing concept. All signing should be highly compatible with the building and site design relative to color, material, and placement. . B. Monument-type signs are the preferred alternative for business identifica- tion whenever possible. Where several te1Ulnts occupy the same site; individual wall mounted signs are appropriate in combination with a monument signideiz- tifyingthe development and address. . C. The use of backlit individually cut letter. sIgns. is strongly .encouraged. ' D. Each development site should be appropriately signed to give directions to loading and receiving areas, visito/ parking and other special areas. . ' DO THIS DON'T DO THIS Employ a consistent sign pattern Inconsistent sign patterns create confusion. Signs within or above roof area are prohibited. rl.t1! 5/91 . . . COMMERCIAL DESIGN GUIDELINES - G19.06 13. LIGHTING A. Lighting should be used to provide illumination for the security and safety of on-site areas such as parking, loading, shipping, and receiving, pathways, ana working areas. B. The design of light fixtures and their structural support should be architec- turally compatible with the main structures on-site. llluminators should be in- tegrated within the architectural design of the structures. C. As a security device, lighting should be adequate but not overly bright. All building entrances should be well lighted. ,. D. All lighting fixtures must be shielded to confine light spread within the site boundaries. . n-t'.3i2 5191 i I II , I . . DON PRIEST Failure of Scale ~~t~1~s~f#!i!~~~~~~~f~~I~~~~~W~~lt;t~:rt.~~f::%~bY ".0.., ,_""<> i-". ',,,"~'. t..:.'.~~ If,~~,,\/~:r; ~?~ ~~ II",,'!! ',.<). 'l'<:,c'-1F.~<. '.{~, . :U' _,._,,,,. ,__. .../ "-"""'~ -'-~ "" ~ --...... ~- -~ ~~->>., ~_..:.~V V._~ 11:;:g -ft .... - -e;:: _~......-~~ _. .__Y-.~'; -._---~.l,.. Smart growth concepts fail to respond to the nature of urban growth. , , , mart growth concepts are being promoted as solutions to the long-running problem of sprawl. And advocates of smart growth are hav- ing considerable success in selling these con- cepts to decision makers. However, most of the solutions to sprawl promoted by smart growth advocates are not new, and definitions of smart growth vary widely. Participants in the smart growth movement, after all, hold widely varying perspectives. At one end of the spectrwTI are those who take "smart" growth to mean slow ~owth--or no g:owth.' t the other end are those who believe that smart groWth Should embrace the concept at gro IS mevitable an<!.beneficial, and should balance the protection of prop':- erty rights and freedom of choice with other important pu~lic obje~es. These conflicting views lead to many qu~- tions and much confusion. On the positive side, some of the concepts most avidly promoted by smart growth advocates are having a benefi- cial impact on urban development. The neotraditional nei borhood conce t is be ' nin to in{h;ence the think- ing of both public and private decision makers. Althoug Dot all completed projects are successful in terms of qua1l'9'- of-life and business criteria, lessons are being learned and the ...... concept has earned an important niche in the market Vari- ations of the neotraditional design most likely Will iclJ.uence ,community development for many years to come. Similar- ....~ Iy, mixed-use, infill, and transit-oriented development- , idea~ that preceded the smart growth movement-Will , COrnel into their own, reinforced and made even more pop- ,ular bysmart growth advocacy. Smart growth advocacy al-' so has hel ed increase the lon ~olving popularity of open: ~ace preservation and public and market support for ur an rP,,;t~1i7,,tiQ!Elctivity. The record of successes and prospects for the future of twoother concepts associated with smart growth-a significant increase in development densities and a shift in transportation priorities from highwa'({to transit-are more problematic. None of these concepts are inherently antigrowth. In- deed, all have varying degrees of popular and market sup- port and can be used to improve the quality of life. But, the big question is: Does the smart growth movement, based onlv on these concepts, have a reasonable chance of solviIlg the problem of sprawl? The answer is no. In general, there are two problems. First, limiting the sffiah ~owth pro~am t~ the cq,ncepts noted ahnvp (Ine~ not adequately account for the scale and nature of urban growth in thp 1 Jnited States. "'-- - Second, l~e-scalp;"""flll~pntatinn of the conc~pt~ i~ ilot possible given the difficulties of providing adequate infra- structure and generating the necessary political support. The most obvious problem with smart' grow'th as presently defined is that the toolkit of smart growth con- cepts fails to res ond to the scale and complexity of de- mand and the need for built environment pro ucts. Call it ~ . a "failure of scale:' Each smart growth concept has a market niche. but taken as a 1 , ~ percentage of total de- ~d, these niches ~ all pretty smal~. E~ "!i..th doubling, tripling, or quadrupling market penetration througli , -, aggreSSIve promotion, ,it will still be necess~ ~ , to, use many noI1- smart growth products to meet projected pop- ulation and economic growth requirements. There is a pressing need' for the smart ~owth movementto embrace all land mp pI: ements and to define "smarter" ways to develop produ<:!s tlJat may not win smart growth prizes. but that meet ;s- sential demands in every urban area. _ For example, smart growth literature often vilifies low- density residential development, suggesting, at least by ~- plication, that it simply not be allowed. This is not a rea- sonable solution to meetin owth re r uirements. It would make more sense to define better ways to deve op low- density housing as, for example, in the context of E.!.anned or new communities that have a mix of housing types. These DON pRiEsT, a retired communities should be promoted as a malor component land developer, of smart growth strategies. As it stands now, they frequently managed a land are the target of intense oppositioq because ~e. ~ development firm Their merits, including environmental advantages (e.g. , operating in Virginia, preservation ofIarge integrated open spaces) are obscure9 li North Carolina, and by rhetoric on the impact oflargp-~(":lll' projl'ct~ If the same \, Texas. Previously, he amount of time and energy were spent on educating the was a development public about the advantages that planned large-scale com- consultant; taught munities have over fragmented small-scale projects, as are \ at the University of spent on promoting neotraditional neighborhoods, there Virginia; and was , I!light well be major unprovements m the Quality of s~- a director of Oll's urban development research program. 4-23 U r ban Lan d March 2002 21 A central tenet of smart growth policy is or mixed uses. Though development propo- replacement to be fully functional. Second, not that development densities need to be increased nents sometimes can overcome this resistance, all the infrastructure necessary to support den- tJ facilitate more efficient use of infrastructure, it takes time and money. As a result, the process sity increases will be in place in partially devel- ~onservatlOn or land resources, and more ex- of "densifying" can be very slow, and the den- oped areas. Some very expensive new facilities ,. tensi.ve useol.1ransit. This goal could be sities achieved may not be optimal from the may be required, particularly rail transit With achieved, say advocateS, through higher-den- standpoint of infrastructure use and support- a few exceptions, these investments are not be- 'sity suburban development,.and infill and high- ing, alternate transportation modes. ing made or are being made at a level far below density construction in developed areas. In oth- Paradoxically, the major fac.tor inhibitm.g what is needed. The result is the slow strangu- er words, the average density of all urban areas slg~It1cant overall density increases is, and will.. lation of both suburban and infill growth, es- should be significantly increased. c6i1tin.lle to be, failure on a national scale to in- pecially in areas with high growth demand. CUr- Yyhile the logic of this policy may be sound, vest adequately in the infrastructure needep to rently, the solution to this dilemma is to real difficulties can arISe In acnieving sigiilli- support all projected growth within a highe~- accelerate the decentralization of jobs and peo~ ..- cant increases in density in most urban areas. density urban context. On the one han~- pIe to cities and regions that still have infra- Qitics of smart growth often point out that ure to invest in suburban infrastructure from. structure capacity. Although this results in a the market will not support significant in- ers ective of some smart growth advo- more even national distribution of the benefits " . creases, especially in housing. Certainly, there. ..,E,ates would seem to be a ~ood thing m at it of growth, it dis~ibutesthe costs of gro;yth to . is some truth to this assertion; even so, evidence might force developmel}.t back into existing ti.F . aieas that may not be prepared for it Moreover, $hows that market forces are causing an in- ban areas. On the other hand, existing urban . it does not solve the original problem of inad- crease in density as land and infrastructur~ areas may not be ready to receive a major wave equate investment in ~frasrr;.I~~. . costs rise. Moreover, a significant numb~of o!E!w growth because, contrary to popuJar Insufficient infrMt~Cn;.~~ investment is a consumers ~ seek higher-density housir!g.. understanding, they, too, need major infra- national problem, stemming from the wide- wnen it IS well deSIgned and constructedari.-d, structure investments. spread desire at the loca!level to avoid or de- E!2Perly served by adequate infrastructure. Po: While it is good policy to make better use of fer the costs necessary to support growth. It ap- litica! resistance to increase density is, however, ,underused infrastructure in many urban areas pears at times that this attitude can only be a real problem. Existing residents typically re- through infill, there are two problems. First, a altered by occasional clisMters,';is in the case of sist change of any sort in their own neighbor- portion of the existing infrastructure will be old the. California energy crisi~. Th~r~ should be hood, particularly increased density, new Uses, and deteriorated and will need upgrading or continuing efforts to devise innovative public MILLER SELLEN CONNER & WALSH . Community Planners · Designers · Engineers Community Planning & Design Site Selection & Analysis Studies Opportunities & Constraints Analysis Master Planning Sector Planning Specific Area Plans land Development Codes . Citizen Participation, Visioning & Consensus Building , Civil Engineering Golf Course Consulting Water Resources Engineering & Permitting Economic & Market Analysis Eminent Domain Services Environmental Services . 214 E. lucerne Circle- Orlando, Fl 32801 - 407.422.3330 - www.mscwinc.com 22 U r ban Lan d March 2002 4-24 and private financing solutions to meet infra- el will notlikely be replicated in the future. Ac- of land use authority will continue to be the structure needs, as well as major efforts to ed- ceptance of this fact will help establish the con- political reality of the future. ucate the public regarding the short- and long- text for the many kinds of urban development There have been numerous efforts to term costs associated with failing to build the guidelines that will be .needed to significantly change this situation. Pressure from the feder- infrastructure necessary to accommodate pro- alter the pattern and quality of regional growth. al government, which began in earnest in the jected growth. . 'v Smart growth literature emphasizes the 1960s, has been effective, but not effective Qther sectors given little attention by the . merits of a r.egion~l ~pproach to land use de- enough to change the basic structure of land smart' growth movement are industrial areaS; cision making~Maximizing the efficient use of use decision making. Federal success in setting nonvillage and non-central business district infrastructure and certain public services, inin- '. standards and decision-making procedures re- (CBD 1 retail, and utility systems. California has' imizing adverse environmental impacts, ana garding environmental matters, which are rea- discovered that the task of ac~ommodating ac1iieving other worthy objectives through re- sonably definitive, has not and, it appears, will , 7' electrIcal utilitIes cannot be resolved if the plan- gional planning and implementation have been not be replicated in the field ofland use, which n~ process is dominated by neighborhood hot topics for over 50 years. ~ut even though is rarely definitive. ' m~etings. State andreglOnalleadership and the logic ofa regional approach is'Sound, with A more promising way to introduce some re~ona6te guidelines are needed as well. the exception of a few successful efforts;I-e- regional logic into land use decisions appears New edge cities, particularly those with frag- glOnallsm has largely been a failure in this' , to be through state intervention.Mary~and's mented landownership, are similarly ignored, country. If the full-blown success of the smart - smart growth activities and the initiative tak- 11:o..doubt because they are viewed as a c~ ~ growth movement de ends on the widespreaa en by Georgia in dealing with regional prob- ponent of undesirable spra~1. As the decen- acceptance of regional land use decision m - lems in Atlanta are particularly noteworthy. triliiatio~ ~f employment continues, howev- ing, then smart growth, as presently defui.ed, ~e jury is still out as to the long-run success er, edge cities will continue to be developed. will be ariotherpassing fad:Th~ powers to plan of these ventures, but political power dose to Smarter ways to develop these cities need to be and implement land use ded.si~ns are jeeJ"bus- home -(localities) can be decisive. Governors defined to ensure that they evolve as viable ur- ly guarded prerogatives of local government. are in a position to make things happen if they ba,.centers. In the great majority of urban re- In the great majority of cases, these govern- have the political will. The smart growth move- gions; jobs and people will continue to be de- ments act in their own perceived self-interest ment would be well advised to focus less on old central~ed. Strong central cities will continue' and rarely do these interests coincide with regional solutions and more on the role of state to dominateafewolder regions, but this mod- ideal region-based plans. The decentralization governments in solving regional problems. . . . 4-25 SEEKING EXTRAORDINARY DEVELOPMENTS FORA UNIQ1JE LOCATION Our premier mixed-use development is located just minutes from Orlando International Airport aner Florida's Turnpike, and is adjacent to Interstate 4, in the hottest new growth spot near the Orlando attractions. We offer a 400-acre master planned development ideal for high-quality, upscale projects. Please contact us to discuss how your hotel, office or retail project can join the outstanding 1400-room Gaylord Opryland Hotel in the most dynamic new submarket in the area. For more information on available sites or build-to-suitopportunities, contact Susan Lawrence, VP Marketing E-mail: slawrence@xenturycity.com 407.363.7883 Fax 407.363.1640 I XENTURY CITY DEVELOPMENT COMPANY 7575 Phillips Blvd., Suite 260 Orlando. FL 32819 '_ www.xenturjCity.com U r ban Lan d March 2002 23 I . . Working with other national organizations and interest groups, ULI has had some success in negotiating a reasonably balanced smart growth agenda Unfortunately, this task is much more difficult to achieve at the locallevel where NIMBYism and other no-growth or slow- growth interests are "present at the table" in great numbers, and where the.financial and daily-quality"of-life stakes are higher for partic- ipants in the negotiation or decision-making process. The balance of power usually tips in favor of a coalition of interests composed of NIMBYs, fiscal conservatives, and environ- , mentalists. Because many members of these coalitions tend to hold negative views of growth of any kind, smart growth concepts may ulti- mately be folded into land use strategies that are, at best, slow-growth strategies. For example, such a coalition may welcome neotraditional neighborhoods, mixed-use proj- ects, and improved transit, but may go further and mandate that all new development conform to those models. Conformance is ensured by im-. posing various kinds of growth controls, in- cluding urban growth limits. Prices rise, not be- cause of the smart growth concepts themselves, but because of the growth regulations. Growth . AT THE HEART OF ALL DISPUTES ABOUT L\ND USE POLICY. .. IS A PROFOUND LACK . OF UNDERSTANDING. .. REGARDING THE NET EFFECT OF THE COSTS AND BENEFITS OF GROWTH AT ALL GEOGRAPHIC SCALES. that might otherwise occur in these jurisdictions goes elsewhere. Variations of this scenario fre- quently o,cur throughout the country. It is a case of the pendulum swinging too far. This kind of problem has no easy solutions. Ultimately, local participants in formulating land use policy must work out their own solu- tions. However, assisted by other national or- ganizations with which it has been negotiating (such as the Sierra Club), and working through the district councils, ULI should continue its, efforts to take the negotiation process that it - has Used at the national level down to the re- gionallevel. Engaging the local chapters of oth- er national organizations in debates, usingex- arnples of real projects and communities, would be most informative. Expectations for outright success, however, should be low. The main purpose of these efforts should be to try to alter the balance of power regarding land use decision making so that the merits of growth can receive fair consideration. Any progress on this front would be beneficial. At the heart of all disputes about land use policy, whether theyconcem smart growth or managed growth, is a profound lack of under- standing on the part of most, if not all, parties regarding the net effect of the costs and bene- fits of growth at all geographic scales. To make truly informed land use decisions, iUs not enough to understand the cost/benefit equa- tion only at the local level. The net effects of costs and benefits must be understood at re- gional, state, national, and global levels, and at the interaction points among levels. It would appear that the net effects of growth ax:e bene- ~cial and that smart growth programs must ac- ' commodate healthy economic growth rates. But assertions 'on this matter have no merit with- out supporting evidence. The cost/benefit issue is complicated, and it will take a lot of effort to " bring clarity to the matter. Unfortunately, there is presently little useful dialogue on the subject Perhaps the best action ULI could take regard- ing smart growth would be to provide a na- tional forum for an unfettered debate about the benefits and costs of growth; . 4-26 .. Date: From: April 29, 2002 Rob Zako To: Springfield City Council CC: Greg Mott Jan Childs Tom Stinchfield Stefano Viggiano Tom Schwetz Bob Cortright Subject: Draft Springfield Development Code Amendments - Articles 40 ("Mixed-Use Zoning Districts") and 41 ("Nodal Development Overlay District") . Executive Summary Articles 40 and 41 are positive changes for Springfield. Special height standards for nodal development overlay districts are inadequate. An important goal' of mixed-use development and especially nodal development is to reduce reliance on the automobile. Nodal development is defmed by TransPlan and the TPR. Article 41 is perhaps unlikely to lead to reduced reliance on the automobile. A "flexible" application of Article 41 is perhap~ even less likely to lead to reduced reliance on the automobile. Springfield should strive for a nodal development code that is more likely to lead to reduced reliance on the automobile. Dear Mayor Leiken and Springfield City Council, Thank you for this opportunity to comment on the proposed amendments to the Springfield Development Code (SDC) related to mixed-use development and nodal development. As you know, I participated extensively in the development of TransPlan, in particular, in the development of the alternative performance measures for TransP1an. My primary interest is that TransPlan be implemented well and its goals advanced. I am less interested in ' the details of allowed uses arid design standards that Springfield adopts in order to support mixed-use development and nodal development. , Thus the bulk of my comments are general and are intended to frame Articles 40 and especially 41 in the regulatory and policy context they are intended to implement. . Articles 40 and 41 are positive changes for Springfield. , The staff report (Apri12, 2002) included with the packet for your April 15, 2002, work session notes: The Springfield Development Code (SDC), in its present fonn, largely discourages mixed-use development by segregating commercial, residential and employment uses. Amendments to the Springfield Development Code are deemed necessary to allow mixed-use development and the compatible mix of uses that it allows to be implemented. . Although obvious, it bears repeating that allowing mixed-use development is a very positive change for Springfield that will allow for more variety in residential, commercial and employment land use patterns. I strongly support Springfield's efforts in this direction.' ' 4-27 . . . Rob Zako Draft Springfield Deve10pmenJ Code Amendments - Articles 40 and 41 Page 2 Apri129,2002 The location standards (41.030), building setbacks and parking standards (41.040), and standards for residential uses (41.050) all support "pedestrian-friendly, mixed-use development" as outlined in the " Oregon Transportation Planning Rule (TPR). In brief, I appreciate and applaud Springfield's initial efforts at allowing for mixed-use and nodal development. Special height standards for nodal development overlay districts are ' inadequate. However, I am concerned about the proposed special height standards in nodal development overlay districts. , ' In very nice European city com.niunities, the tendency is to not go above 5 stones. This allows for light to penetrate into the public spaces, to prevent very 'tall buildings from dehumanizing the pedestrian environment, encouraging at least the opportunity for "walk up" apartments, and avoiding the "Ya-Po-Ah Terrace" syndrome, where a building Or two is allowed to supplant, even dominate, the broader language of the natural landscape. The goal, I think, is to make the city human and pedestrian-friendly, so that people can feel like humans, not machines. So, while "going up" can address densification in a positive manner in some respects, at some point it becomes contrary to simple comfort and livability - not just for those people living within those spaces, but for all of us within the community. Section 41.050(1)( e )(2) provides standards for building height transition for single family residences arid duplexes. ' , , For multi-family residential, commercial and industrial uses, sections 41.050(2) and 41.060 refer to sections 40.110(1)-(3) for specific development standards. As these references don't seem to make sense, I assume these references are typos and that the intended references are to sections 40.120(1)-(3). Note that the draft 'of Article 40 included with the packet for the April 15, 2002, work session includes two sections both numbered 40.120. If the references cited above actually refer to (the first) section 40.120, then there are no special provisions for height standards for multi-family resIdential, commercial or industrial uses in nodal development areas: It is possible that the modest height standards in section 40.060 apply to uses in all nodal development overlay districts., If so, it is not clear to me from rea.ding the code. In any case, these standards ("There shall be no building height limitations in the MUCdistrict.") are inadequate for supporting human-scale, pedestrian-friendly development. In order to. support human-scale, pedestrian friendly development within nodal development overlay districts, the height standards in Article 41 should be strengthened. An important goal of mixed-use development and especially nodal development is to reduce reliance on the automobile. As you know, TransPlan fails to achieve the TPR requirement; OAR 660-012-0035(4), to reduce daily vehicle miles of travel per capita (VMTs) by 5% over 20 years. Instead, TransPlan (Chapter Four, Part Three) incorporates a set of alternative performance measures pursuant to OAR 660-012-0035(5) and approved by the Oregon Land Conservation Development' Commission (LCDC) through order 01-LCDC-024 (which is reproduced as TransPlan, Appendix G). 4-28 . .. . Rob Zako Draft Springfield Development Code Amendments - Articles 40 and 41 Page 3 April 29, 2002 This set of six measures includes three measures directly related to nodal development. In particular, the measures call for achieving the following targets for the Eugene-Springfield metropolitan area by the year 2015: · 2000 acres of zoned nodal development, · 23.3% of new dwelling units built ill nodal development areas, and · 45% of new ''total'' employment in nodal development areas. Broadly speaking, the switch from the VMT measure to the set of alternative measures reflects a switch from measuring results to measuring efforts. One way to explain this switch is that it is unreasonable to hold local governments accountable for actually reducing reliance on the automobile. Reliance on the automobile depends ultimately on the individual choices of private citizens over which local governments have no direct control.' But it is reasonable to require local governments to make every reasonable effort to encourage reduced reliance on the automobile through a variety of regulatory, capital investment and market strategies. In order for this switch from results to efforts to be defensible, it is essential that the efforts are likely to lead to actual reduced reliance on the automobile. To the extent that several of the measured efforts involve nodal development, it is essential that nodal development - as it is implemented through Article 41 - is likely to 'lead to actual reduced reliance on the automobile. . Thus how nodal development is defined and implemented by Article 41 becomes critical to achieving the goals of TransPlan and of the TPR. Nodal de~elopmentis defined by TransPlan and the TPR. As you know, TransPlan, Appendix E: Glossary and Acronyms, defmes "nodal development" as follows: Nodal development is a mixed-use, pedestrian-friendly land use pattern that seeks to increase concentrations of population and employment in well-defined areas with good transit service, a mix of diverse and compatible land uses, and public and private improvements designed to be pedestrian and transit oriented. Fundamental characteristics of nodal d~velopment require: Design elements that support pedestrian environments and encourage transit use, walking, and bicycling; A transit stop which is within walking distance (generally 1/4 ~ile) ofanywhei-e in the node; Mixed uses so that services are available within walking distance; Public spaces, such as parks, public and private open space, and public facilities, that can be reached without driving; and A mix of housing types and residential densities that achieve an overall net density of 12 dwelling units per net acre. Nodal developments will vary in the amount, type, and orientation of commercial, civic, and employment uses; target floor area ratios; size of buildings; ad the amount and types of residential uses. Possible nod8.1 development patterns include neighborhood centers, commercial centers, employment centers, and combinations thereof. The Transportation Planning Rule (TPR), OAR 660-012-0060(7), states: (7) A "mixed-use, pedestrian-friendly center or neighborhood" for the purposes of this rule, means: (a) Anyone of the following: (A) An existing central business district or downtown; .4-29 , Rob Zako Draft Springfield Development Code Amendments - Articles 40 and 41 Page 4 April 29, 2002 . (B) An area designated as a cehtral city, regional center, town center or main street in the Portland Metro 2040 Regional Growth Concept; (C) An area designated in an acknowledged comprehensive plan as a transit-oriented development or a pedestrian district; or (D) An area designated as a special transportation area as provided for in the Oregon Highway Plan. ' (b) An area other than those listed in (a) which inciudes or is planned to include the following characteristics: (B) (C) (D) (E) . (F) (G) (H) (A) A concentration of a variety of land uses in a well-defined area, including the following: (i) Medium to high density residential development (12 or more units per acre); (ii) Offices or office buildings; (iii) Retail stotes and services; , (iv) Restaurants; and (v) Public open space or private open space which is available for public use, such as a park or plaza. Generally include civic or cultural uses; A core commercial area where multi-story buildings are pennitted; Buildings and building entrances oriented to streets; Street connections and crossings that make the center safe and conveniently accessible from adjacent areas; A network of streets, and, where appropriate, accessways and major driveways that make it attractive and highly convenient for people to walk between uses within the center or neighborhood, including streets and major driveways within the center with wide sidewalks and other features, including pedestrian-oriented street crossings, street trees, pedestrian-scale lighting and on-street parking; One or more transit stops (in urban areas with fixed route transit service); and Limit or do not allow low-intensity or land extensive uses, such as most industrial uses, automobile sales and services, and drive-through services. The Purpose section (41.010) of Article 41 quotes part of the TransPlan defmition and cites the TPR defInition. Article 41 is perhaps unlikely to lead to reduced reliance on the automobile. Whilethis is all well and good, the devil is often in the details. It is unclear, at least to me, if development that conforms to the standards in Article 41 is likely to lead to actual reduced reliance on the automobile. Indeed, Finding #28, Goal 12 - Transportation, in the staff report (April 2, 2002) does not speak to whether or not Article 41 will result in development that is likely to lead to actual reduced reliance on the automobile. . . Finding #15 does cite OAR 660-012-0060(5), which directs planners to assume that "mixed-use, pedestrian-friendly centers and neighborhoods" will reduce trips generated by 10% from the estimates shown in the ITE Trip Generation Manual. But this 10% credit is only for the purposes of "determining whether proposed land uses would affect or be consistent with planned transportation facilities as provided in 0060(1) and (2)" of the TPR. I do not believe that 0060(5) is a certification that any sort o( mixed-used development, however implemented, IS likely to reduce reliance on the automobile. 4-30 . . . Rob Zako Draft Springfield Development Code Amendments - Articles 40 and 41 Page 5 April 29, 2002 But during its work sessions, the Springfield City Council has indicated that nodal development is unlikely to reduce reliance on the automobile. Staff has also expressed the belief that nodal development is unlikely to reduce reliance on the automobile, and that reducing reliance is not the purpose of Article 41. A "flexible" application of Article 41 is perhaps even less likely to lead to reduced reliance on the automobile. In submitted testimony, Philip Farrington of PeaceHea1th urges that "proposed code language should allow flexibility to achieve nodal development objectives through a variety of design means." I believe that others also testified that more flexibility in the code is desirable. In principle, I agree that more flexibility is desirable. A "one-size-fits-all" approach is not necessarily the best way to get good design. Indeed, it is unclear whether one can create good design by regulation. It would be better to have code that allows for unanticipated designs that nevertheless meet objectives. But I am also concerned by a "slippery slope" from a clear and objective measure (VMT) of results, to a measure of efforts (nodal development) that is only as clear and objective as the definition of nodal development, to a flexible Interpretation of what nodal development is. I am concerned that too much flexibility might result in development that bears little resemblance to the original goal of reducing reliance on the automobile. Indeed, depending on how it is read, the Purpose section (41.010) of Article 41 mayor may not define the objectives of nodal development clearly and objectively enough to allow a flexible application of Article 41. As I do support provisions for flexibility, I believe it is important to craft a more specific and clear but flexibledefm~tion of nodal development against which proposed designs could be measured before allowing additional flexibility beyond what Article 41 already provides. Indeed, Article 41 already provides substantial flexibility in terms of the underlying zone: NC, CC,MRC, GO, MUC, MS, LMI, SLI, HI, MUE, MDR, HDR, MUR, or LDR. Section 41.030 provides significant flexibility in establishing the boundaries of a Nodal Development Overlay. As staff notes in their response to Mr. Farrington's testimony, section 41.030 states that criteria shall be considered (not required) and that parcels should (not shall) be located within 1/4 mile of a transit stop. Staff indicates that this language intends for flexibility, i.e., that the criteria need not be followed. Given all this flexibility in both the underlying zone and the location ofa nodal development overlay district, a skeptic might wonder whether just about any sort of development could qualify as nodal development. If that were the case, then it would obviously be easy to achieve the TransPlan alternative measures related to nodal development, but it would be unclear what the significance of doing so would be. TheTPR requires that achieving the nodal development alternative measures result in reduced reliance on the automobile. The TPR, OAR 660-015-0035(5)(a)(A)-(C), requires that: (A) Achieving the alternative standard will result in a reduction in reliance on automobiles. (B) Achieving the alternative standard will accomplish a significant increase in the availability' or convenience of alternative modes of transportation. (C) AchieVing the alternative standard is likely to result in a significant increase in the share of trips made by alternative modes, including walking, bicycling, ridesharing and transit. 4-31 . . Rob Zako . Draft Springfield Development Code Amendments - Articles 40 and41 Page 6 April 29, 2002 I recognize that LCDC has already approved the alternative perfonnance measures (standard), and that these are not at issue. But assuming that Springfield intends to meet the alternative perfonnance measure targets through the application of Article 41, the question of whether or not Article 41 implements the letter and intent of nodal development as defmed in TransPlan and approved as part of the alternative perfonnance measures is at issue. It is of great concern me to hear Springfield state that Article 41 is not expected to reduce reliance on the ' automobile without proposing additional standards, requirements, incentives, etc. that would likely lead to reduced reliance on the automobile. While Springfield's assessment of the likely effect of Article 41 on the use of the automobile may be realistic, and while I am sympathetic to the difficulty of changing transportation patterns in cities such as Springfield and Eugene (as opposed to in Portland), I consider this attitude to be problematic. While the original 5% VMT reduction requirement was imposed by the State, and thus perhaps could be argued as being u~easonable,' the TransPlan altemative perfonnance measures were proposed' by Springfield and Eugene themselves. In so doing, Springfield and Eugene argued to LCDC that the , / alternative measures could be achieved and that doing so would result in reduced reliance on the automobile. To put it in plain language, it wouldn't be fair for Springfield and Eugene to say they couldn't follow the rules when they had a hand in writing those rules! Staff and officials have a responsibility to assert ownership of the alternative perfonnance measures, and to affInn their commitment to the principles they presented to LCDC for approval. Springfield should strive for a nodal development code that is more likely to lead to reduced reliance on the automobile. Respectfully, I encourage Springfield to reassess whether or not they have considered all reasonable ways of reducing reliance on the automobile or if some additional efforts would likely lead to reduced reliance. If staff and officials believe that Article 41 is unlikely to lead to significant reduced reliance on the automobile, then the proposed code should be reviewed further with the intent of drafting code that will, in all likelihood, result in reduced reliance on the automobile. In making this suggestion, please understand that I heartily endorse Springfield's efforts in promoting mixed-use and nodal development. I appreciate the difficulty of affecting the transportation choices people make. lam not being critical.of Springfield for failing to achieve some standard before even trying. I would be critical of Springfield only if they failed to try enough. , Specific Recommendations. . In conclusion, I recommend the following: 1. In order to support human-scale, pedestrian friendly development within nodal development overlay districts, the height standards in Article 41 should be'strengthened. 2. The Purpose section (41.010) of Article 41 should be amended to inchide a more specific and clear but flexible definition of nodal development against which proposed designs could be measured This defmition should focus on outcomes, not means, an,d should explicitly include reducing reliance on the automobile. ' . 3. The location standaids (41.030) should be strengthened so that every nodal development overlay district is certain to have a transit stop that serves the district well. 4-32 . . . Rob Zako Draft Springfield Development Code Amendments - Articles 40 and 41 Page 7 April 29, 2002 4. Findings that Article 41 is likely to lead to reduced reliance on the automobile should be issued prior to adopting the proposed code amendments. ' , 5. If staff aild officials, believe that Article 41 is unlikely to lead to significant reduced reliance on the automobile, then the proposed code should be reviewed further with the intent of drafting code' that will, in all likelihood, result in reduced reliance on the automobile. 6. Staff and officials should assert ownership of the TransPlan alternative performance measures and affirm their commitment to the principles they presented to LCDC for approval. Thank you for this opportunity to comment. Sincerely, Rob Zako 1280-B East.2SthAve., Eugene, OR 97403 343-5201 . rzako@efn.org 4~33 04/28/82 TUB 02:07 FAX 541 726 7116 B~J!..~r!!l.!~~L__. _.. .._.. .... ..on. . III 002 RECEIVED APR 2 9 2002 CITY OF SPRINGFIELD CITY RECORDER . Sid Leiken, Mayor Springfield City Council City of Springfield Springfield, Oregon RE: PUBLIC lNPUT - CITY CODE FOR MIXED USE - BUiLDING HEIGHT STANDARDS 40.070 Dear Mayor Liken and the Springfield City Council: I appreciate the opportunity to offer an observation and suggestion regarding the Mixed Use Zoning code language. . I have personally experienced some very interesting mixed use l~d use patterns in European cities. Moving away from large blocks ofhomogeneo~ly zone and developed land usepattems promises a more dynamic mix of land uses within a human sense of scale, among other benefits. Just how this is done, to prevent la,nd use conflicts which led to zoning in the first" place is the challenge. I believe the present document which is before you does a pretty good job of getting there with one glaring exception. . As proposed, building height standards in.the draft are 'Very likely to result in some outcomes inconsistent with the very intent of mixed use. Just what is intended by the MU district is captured mcely in the cover graphics of the' draft 'and the text' defining the categories: hmnan friendly places; '''providing options for pedestrian oriented lifestyles".. while "minimizing potentially adverse impacts". With or without "nodal zoning", MU has the opportunity to imp~ve a reduction in vehicle travel. My problem is specifically the provision for no building height limitations in the MUC and MUE districts. As drafted, a 1 O~ 20 or hIgher story building ((ould - would - dominate an otherwis,e pleasing and human friendly urban environments. While high rise buildings can have a place in some situations, namely in central business districts of cities, they can be desttuctive of property values and livability when put inappropriate areas. Witness sPecifically the Y I;l-Po-Ah Terrace in Eugene, where Skinners , Butte and a charming historic neighborhood have been adversely impacted by one building. . -European communities recognized by planners as the archetype for the MU approach to future development have for a variety of reasons achieved a happy compromise of density and livability with a ' maximum of 5 story buildings. . I very much encourage you to either place some specific height limit, for the two use categories which presently do not possess specific maximum limits; or otherwise, return the draft to the Planning Cemini~sion for further consideration oftbisnui.tter. I would encourage a 5 story or 55 foot limit. Respectfully yours,' . ~~o-.~ Tom R 'Bowerman 33107 McKenzie View Eugene, Oregon 97408 . 7267116 4-34 .. o ~ . o ...., ~~ .. ~ u ~ o U u .~ ~ ~ ~ ~ o o . ~ 1D'I- REG'll t 'f{\A12-~ M~-d Monday, April 22, 2002 Springfield City Council 225 5th Street Springfidd, Oregon 97477 RE: Nodal Devdopment Dear Council Members: , I sincerdy bdieve that Springfidd can benefit from nodal devdopment. Nodal devdopment, or Traditional Neighborhood Devdopment (TND) as it is otherwise known, can hdp to make Springfidd a more attractive place to live and visit. It can help us to become more than just "Eugene's ugly little sister." My concern is that for Traditional Neighborhood Devdopment to be successful, multiple, conditions must be met. Omis~ion of any of these conditions will probably result in failure. The hook Suburban Nation by Andres Duany, Elizibeth Plater-Zyberk, and Jeff Speck carefUlly outlines these conditions. If you have not read this book,' I strongly urge that you do. I have enclosed a checklist from Suburban Nation that deals with Traditional Neighborhood Devdopment. Please use it when you review the codes being proposed. Nodal Development can make Springfield a better place. Let's do it right. Thank you for your consideration. ~tl , Dr. Donald ,/),/ / / .l jJ i , . McCormack, Jr. 4-35 521 5d1 Street Springfield, Oregon 97477 Phone: 541-747-5886 . There are always.. exceptions, but the majority of Traditional !eighborhood Developments correspond to the maj()rity of the lIes that follow. All these principles have a significant impact on Ie quality of a development, but those marked with an asterisk (*) 'e essential and nonnegotiable. THE REGIONAL CONTEXT Is the TND location consistent with a comprehensive regional plan that presen'es open space and encourages public transit?" Is the TND connected in as many locations as possible to adja- cent developments and thoroughfares?* Do highways approaching the TND either pass to its side or take on low-speed (25 mph maximum) geometries when enter- ihg the neighborhood proper?* _ ~oes the TND provide a relatively'balanced mix of housing. workplace, shopping, recreational, and institutional uses?* THE SITE CONTEXT _ Are lakes, ponds, wetlands, and other, natural resourl'l". retained and celebrated?'" _ Are significant natural amenities at least partially fronted 1,\ thoroughfares or public tracts, rather than privatized behilld backyards?* Is the site developed in such a way as to maximize the pres(.'n.1 tion, of high-quality trees and significant groups of trees ?" 6 . SUBURBAN NATION Co" ,'.....,..c.....,".... c. It ~A~...:.., . . Does the plan locate neighborhood centers and sub-centers such as squares, greens, and parks at significant tree-save areas and other natural amenities?"'" Does the plan accommodate itself to the site topography to minimize the amount of grading necessary to achieve a viable street network?:;' Are significant hilltops celebrated with public tracts and/or . civic buildings, and are mountaintops and major ridges kept clear of private development? THE PLAN STRUCTURE Is the plan divided into neighborhoods, where each neighborhood has the following characteristics: Is it roughly a five-minute walk-a quarter mile-from edge to center? (Centers can be peripherally located in response to a site condition, such as a beach, major thoroughfare, or railroad station.):;' Does housing density increase from the edge to the center?* Is the neighborhood center the location of retail space-a cor- ner store is required (subsidized if necessary)-and office space, ideally located in mixed-use buildingsY Is there a dry, dignified place to wait for transit' at the neighbor- hoodcenter?:{' Is ther~ a civic space such as a plaza or green at the neighbor- hood center?:f Does the neighborhood resen'e at least one prominent, hon- orific site for a civic building?'" THE TRADITIONAL NEIGHBORHOOD DEVELOPM'ENT CHECKLIST. 247 '~Wf\"-,~" .\:} ...,.... . . . Are there small parks distributed evenly thr~ugh the neighbor- . hood, roughly within one-eighth mile of every dwelling? * Are elementary schools and recreational facilities located within one mile of most dwellings, sized accordingly, and easily acces- sible on foot?* Are lots zoned not by use but by compatibility of building type?* Do most zoning changes in allowable building type occur at mid-block rather than mid-street? Is the neighborhood edge bordered by either a natural corridor or the edge of an' adjacent neighborhood across a pedestrian- friendly boulevard? Are any large areas of open space between neighborhoods con- nected into continuo~s natural corridors? Do all public tracts within the neighborhood correspond to well-understood open-space types, such as park, green, square, "tr plaza? w -.I Are unconventional roadway geometries prnvidl.d 10 call11 t rar- -- fic, such as forks, triangles, and staggered inlersc'diolls? Are most street vistas terminated by a l';lrc.fllll\' sitc.d hll'ildinv,. a public tract, a view of a natural fealure. or a ("III'\'!' in lhe street? Do most streets that curve maintain roll~hl\' II\(' S;l\l\(' cardinal orientation (except where steep grades diclall' o!l\('lwisl.r THE STREETSCAI'F. -[ r 1; K *" Is there a hierarchy of streets,* incllldin~: Main street, approximately 34 reC'\ wid... \\ illl milk...! parking on both sides; Through streets, approximately 171'1'1'1 \\i,k. \\ ill. 111;111,.,''\ parking on one side; Standard streets, approximately L,l 1'1"('1 wi.!,'. \1111. 1111 marked parking allowed to staMer frolll ...id.. 10 "'1.\", Local streets, medium density. apprmilll;'I,'h .." 1..1'1 wide, with unmarked parking on hol h sidl....: Local streets, low density, appro:\illl;lleh- .',) 1...-1 \\11 k. with unmarked parking on one silk: Commercial rear alleys, approximatel\' ....-1 r.-I'I \\id.' \\'ill,ill a 24-foot right-of-way; Rear lanes, approximately 12 feel widl' wilhill ;1 ....-I-root right-of-way? Do all streets other than alleys and lanes have a sidewalk on al least one side, 4 to 5 feet in width?* (Exl"epliolis ;m' v,r;\Illed in extremely rural or low-traffic conditions.) THE THOROUGHFARE NETWORK Are streets organized in a comprehensible hierarchical network that manifests the structure of the neighborhood?* _ Do blocks average less than 600 feet in length and less than 1,800 feet in perimeter?* Are all streets fronted by public or private property, rather than serving as collector roads with no purpose other than handling ) traffic?* Are cul-de-sacs avoided when natural conditions do not demand them?* f; /?( {if r ~.: THE TRADITIONAL NEIGHBORHOOD DEVELlH'MENT ClIl'.CltLlST · 249 t8 . SUBURBAN NATION . . .J:>. ,- e,.) 00 Does every street include, between the roadbed and the side- walk, a tree strip 4 to 10 feet in width, of indigenous shade trees planted approximately 30 feet apart, IO-foot minimum height at planting (located in grated sidewalk planters on commercia] streets)?* ' Are curb radiuses at intersections a maximum of 15 feet, with a typical measurement of 10 feet at local intersections?* Are all parking Jots located at the center of enlarged blocks, such that only their access is visible from adjacent streets?* Are all parking Jot aisles separated by a tree strip approximately 5 feet in width, planted with indigenous shade trees approxi- mate]y 30 feet apart, lo-foot minimum height at planting? Are all unsightly transformers, lift stations, utility meters, HVAC equipment, and other machinery located not in the front streetscape but at the rear Jane or alley? For neighborhoods that are located adjacent to nature, does the streetscape become more rural as it approaches the edge of the neighborhood, with curbs becoming open swales and trees becoming more informal in their placement? THE BUILDINGS Two- and three-family houses; Row houses; Live/work row houses; Bungalows and patio houses Oil slIlall 1111.. I ; 1',.,., wide); Houses on standard Jots (40-70 reel "id,'I: Houses on large Jots (over 70 red wid..\. Is each house lot permitted to contaill a slllall .llll dl.ll\ ,1",.11 ing unit in the rear yard, such as anaparlllll'IIII1\"1 II... ~'.II.I~'." ' Is subsidized housing provided in a/1 illn' '11...111 III .1) ')'111\1 , mately one subsidized unit per ten markl'l LII" 111111 '. Is subsidized housing architecturally illdi..1 ill~'III..II.d ,I.. 1111111 market-rate housing?* Are residential buildings placed rclat in''' 1.111-,.' III II... ',1 \1"11 , such that they are generally set hack till' 1''1111\ .d. 'Ill III 1111' quarter the width of the lot? Do the front setbacks permit the encroadllll"1I1 III ""111'1,"1.1.. attachments, such as stoops, porches. 11:1\' "ill,IIIII'., .1I1,11..d conies?* Do most Jots smaller than 50 feet wide (;11111 ''1,.1111111"111 111111'., Jots) access their parking via a rear Ialll' (III ;111,.\ 1.1111111111111 driveways prohibited?* Are all garages that are served from the sln'l"! 1.11111 ',.'1 1,.11 k .1 ,minimum Of20 feet from the front or till' 111111"'" III IIILllo',1 "11 that the garage doors do not face adjacelll sIn'..!'.:' Do all houses served by alleys haw a,~'llI(,r""1 \;.11 pm;II'\ fence, wall, or shrubs on their rear proper! \' lilll":'" Do all row houses have 5-to-7-foot-tall pri\'an' "ails or r.-Iln's on shared side property Iines?* Is there a diversity of housing types located within close prox- imity to each other?* IdeaHy, there should be a 5 percent mini- mum representation of at least five of the following eight categories: Apartments above commercia] space; Mu]tifamily apartment buildings; 250' . SUBURBAN NATION THE TRADITIONAL NEIGHBORHOOD DEVELOI'MENT ell !:!:" 1.1 ST · 251 ~~~~_. ~Z~ ~~,-",,,,,:,,,,.,,.,,~,";1;-7~'~'~"-' ,5., ~: ," ',. .; l.~-;' '. __" .,'.;{ ;oc",_""",r,;<C"':;;~"",;,~';f.t.ii.t",~~ :;;;;;7" :-:.B:'iI'''- '.- d."~ ,'. .,. . .c' ;". _ '':=' ,::'; . ; ,,;':'; :;~''.;i>~ ~~ '~~'ti".~~f,;"'~"'"~~f"!{' ,~"'~,,",'~~;-/ ";;;":'~' . . Do all commercial buildings ~irectly front the sidewalk, with all parking lots located behind the buildings?'!- Are buildings permitted to satisfy their parking requirements with spaces located both off-street and on-street within one eighth ora mile of the building itself? ,Do all commercial buildings with parking at the rear have shopping entrances only at the front? Does the transition from mid-block parking to main-street shopping take place in a pleasant pedestrian passage lined with, shop windows? Do all commercial buildings have a second story (or more) for other uses? Are all residential buildings other than bungalows and patio homes at least two stories tall?'!- Does each house on a corner lot have its front door facing the larger street, the exceptions being end-unit row houses, which must always turn the corner, and houses against high-speed roadways? Do buildings have relatively flat fronts and simple roofs, with most wings and plan articulations set at the rear? Advocates fo classification tionary and movement h from The AI1 ing news an< cially in todl One em has been th 'j., internationa with a neigl CNU was J ture'Moden in 1928 wh shape of th. architects, neys, publi 2.52. . SUBURBAN NATION · It is fair to s. blamed for th concept of th, members that of New York's cannot help b open space ar