HomeMy WebLinkAbout2004-0922 Study Session PacketCITY
,-AS H LAN D
CITY COUNCIL STUDY SESSION
AG'ENDA
Wednesday, September 22, 2004 at 12:00 p.m.
Council Chambers, 1175 East Main Street
1. Master Planning in Ashland - Approaches to Address City Council Goals;.
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CiTY OF
-ASHLAND
Memo
DATE:
TO:
FROM:
RE:
September 22, 2004
Honorable Mayor and-.City Cou.ncil . .
John McLaughlin, Director of Community DevelOpment ~
Council Study Session:
Master Planning in Ashland- Approaches to Address City Council Goals
The City Council has adopted a goal to continue master planning of large undeveloped properties. This
memo discusses the process of master planning in general, and the application of that process to some
areas of the community, specifically the Croman site and the North Normal area.
From The Urban Pattern (1980), "Master Planning is a means of controlling the urban environment for
a specific area, addressing community values, and guiding growth in desired directions."'
· .
In Ashland, we have had success with master planning specific areas of the community, most notably
the NOrth Mountain neighborhood area. However, it is not as simple as the standard zone and ordinance
approach. Rather, this reliance on the master plan, and the planning process specifically, produces two
significant developments:
1. planning becomes far more complex, affecting a vastly wider range of issues.
2. New public awareness makes the master plan much more powerful - addressing property rights, land
values, and the quality of urban life.
Master planning imposes burdens on the property owner, the developer, and the community. However,
the effort is designed to produce a more efficient, humane, and attractive community, with the rationale
behind the plan grounded in the City's comprehensive plan. It is a way of ensuring that the future more
dearly reflects'the community's values rather than the current market.
An effective plan must reflect an accurate picture of the current conditions, present a challenging but
achievable pattern for future development, and incorporate a fair and accurate assignment of costs and
benefits. A key point is to "present a challenging but achievable pattern" for the future. Master planning
gives the city the opportunity to think outside the box, to consider options not normally considered, and
to create places that will hopefully better serve future generations.
Master planning is not, and cannot be an exact science. However, with the appropriate process, care, and
jtidgement,.the plan Will achieve the 'cOmmunity'S'goals."'. ...... i".. :' "' .. ' .......
DEPARTMENT OF COMMUNITY DEVELOPMENT
Planning Division Tel: 541-488-5305
20 East Main Street Fax: 541-488-5311
Ashland, Oregon 97520 TTY: 800-735-2900
www.ashland.or, us
MAIN AREAS FOR MASTER PLANNING
Previous:
North Mountain Neighborhood (completed)
Current:
Railroad Property
(zoning/land use completed)
(street network completed)
Proposed:
Croman Property (Council goal)
North Normal Neighborhood (Council goal)
Continue Railroad Property (Council goal)
(design standards)
(revisit land use?)
CROMAN PROPERTY AND SURROUNDING AREA - approx. 70 acres
A master plan is generally based upon an outline- an approach to addressing the issues that will be used
to create the basis of the plan.
A. Historic background
Previous uses of site (mill site, log deck, milling structures)
Relationship to community (major employer, focus of community)
Change in economy (downturn in logging, ultimate shut down)
B. Present Conditions and Trends
Site conditions (gemally vacant, large amounts of fill on log deck, slopes, access, views,
rail access, etc...)
Relationship to community (relatively isolated from residential areas)
Industrial zoning- (zone change?)
C. Current and Emerging Issues
EcOnomic Development- (need for industrial? 'Commercial/offiCe? Light'
manufacturing? Rail access? Live/workunits?)
Long term value of this site to the community- variety of job creation opportunities
Affordable Housing - (high density - 40-90 units per acre? - 5+ stories with structured
parking?) Deep subsidies, mixed income, market rate. Market-rate housing can also be
the engine that drives the infrastructure improvements necessary for economic
development.
'. O 't;en"~t~ace _ park. are[~ ? .
DEPARTMENT OF COMMUNITY DEVELOPMENT
Planning Division Tel: 541488-5305
20 East Main Street Fax: 541488-5311
Ashland, Oregon 97520 TrY: 800-735-2900
www.ashland.or, us
Do
E.
Neighborhood Design - traditional neighborhood, grids, terminated vistas
Community Assumptions
Long term community concerns-job creation (no other land within UGB for significant
employment opportunities...short term residential development to allow infrastructure
improvements may be at the long term detriment of the community for jobs and business
development).
Housing Opportunities - plan policies for mixed use, affordable housing, transportation
'benefits of live/work-units, etc... Balance of need for affordable housing vseconomic
development needs.
High quality development pattern with traditional neighborhood design - successful
urban patterns from the past, updated to address current demands. Do not introduce
incompatible patterns of development (suburban office campus aka Silicon Valley) but
utilized time-proven designs.
Plan Development - Goals and Policies
City-driven vs Developer-driven? Community long-term values may be better
represented by city initiated process rather than following developer. Developer may be
more market-driven- time value of money may overshadow community needs. Difficult
for developer to address community needs while maintaining a viable long-term project.
Economic Policies - change fi'om industrial to lOcal based smaller uses. Light industrial,
office, commercial. Live/work in balance with area.
Affordable Housing- consider High. Density (5+ stories with structured parking) to
maximize units and minimize lot coverage/utilization- maintain larger open spaces in
residential area.
Open Space/Park Land- opportunities for neighborhood park area?
Design issues - transportation pattern (multi-modal), bldg design, neighborhood pattern.
F. Plan Adoption
Citizen involvement throughout process, with Planning Commission and City Council
adoption of final product.
The key issues with this project involve the following:
1. Who takes the lead in preparing the plan? .
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DEPARTMENT OF COMMUNITY DEVELOPMENT
Planning Division Tel: 541-488-5305
20 East Main Slmet Fax: 541488-5311
Ashland, Oregon 97520 TTY: 800-735-2900
www.ashland.or, us
A developer has taken substantial initial steps in preparing a master plan for the
site, based up their understanding of the community's needs balanced with the
reality of market forces, and what it will take to make the project achievable.
While there are some merits to this approach, the current financial viability of the
project tends to take priority over the long-term community interests - and
understandably so.
Staff would recommend that the City take the lead in the preparation of the plan,
working with the property owners of not only the mill site, but also of the
surrounding properties. A community based involvement process will likely
produce a plan that is more grounded in the long term .values of.the community.
The downside is that the de.veloper .currently interested in the process may not be
able to continue to be involved due to the extended timeframe. Further, the
current property owners may choose to develop a use based on the current zoning
rather than the future plan, due to the long time frames involved.
2. Nature of Plan
Should the plan be based upon an aggressive and innovative approach to
redevelopment? Or based upon more readily accepted patterns of development?
In the outline above, staff has presented some options concerning housing patterns
that are substantially different that others historically seen in the community.
That is, perhaps allowing the construction of tree multi-story housing (5+ stories)
utilizing structured or underground parking as a way of maximizing the number of
units. This approach, not seen in Ashland's past, would allow for a greater
number of units, greater affordability, preservation of open areas, and efficient use
of land. However, it is a pattern that tends to raise concern in the community - a
truly "urban" pattern of development. While this is an example, it provides a
discussion point for the Council
Similarly, regarding the development of the potential commercial portions of the
site, would the community be better served by a multi-story approach with some
mixed use buildings while others remain of a more industrial style? Or do we
prepare a plan that separates uses in a way that is generally more understood
' b'ased on past deVelopment patternS? ......
Next Steps:
Based upon Council discussion, Staff could continue to work with the current developer on
revising the proposed master plan, or the Staff could prepare a timeline and project budget
for a master planning process for this site.
DEPARTMENT OF COMMUNITY DEVELOPMENT
Planning Division Tel: 541-488-5305
20 East Main Street Fax: 541-488-5311
Ashland, Oregon 97520 TTY: 800-735-2900
www.ashland.or, us
NORTH NORMAL NEIGHBORHOOD
This is a key area for the accommodation of future residential growth within the urban growth
boundary for Ashland. The primary points in master planning this area involve:
1. Identification of key natural features
Wetlands
Riparian Corridors
.- 2. '- Transportation Network
.
Preliminary work was done several years ago on a local street plan for this area. That
effort would need to be expanded to ensure that the proposed street pattern encompasses
the goals and policies of the Comprehensive Plan and Street Standards, while recognizing
the limitations associated with the natural features.
3. Possible Zoning Changes
The area is primarily zoned for R-l-5 (single family- avg. 5 units/acre) and R-1-3.5
(suburban residential - avg. 7-9 uni.ts/acre). The Housing Action plan has recommended
that some areas of the community be upzoned to accommodate greater densities to
provide greater opportunities for affordable housing. This area may one that could
accommodate higher densities.
HoWever, unlike the Croman site, we would not recommend mUlti-story high density
housing at this location, due to the proximity to existing neighborhoods and incompatible
development patterns.
As part of the master planning process, the community may also want to consider a small
neighborhood commercial overlay to allow for limited commercial development that
could serve the immediate area, reducing vehicle trips and providing diversity of uses.
Given the large number of property owners in the area, it may only be feasible for the City to take the
lead in master planning this area, rather than a private developer. This area would involve significant
amounts of public' involvement t° address the wide variety of issues that exist in the neighborhood.'
RAILROAD PROPERTY
The final steps in the Railroad Property master plan involve the development of design standards. The
land use and transportation aspects of the plan have been adopted by the City, ensuring that the future
uses will develop in a pattern appropriate for the area.
DEPARTMENT OF COMMUNITY DEVELOPMENT
Planning Division Tel: 541-488-5305
20 East Main Street Fax: 541488-5311
Ashland, Oregon 97520 TTY: 800-735-2900
www.ashland.or.us
However, it was recommended in the draft plan that speCific design standards be adopted for this area to
reflect the nature of the development patterns as a transition between the Historic Railroad District and
the Hersey Employment/Industrial area.
Further, the City may wish to consider other residential options for the property. Initially, the property
received a E-1 zoning designation (from the original M-1 - Industrial) with a residential overlay.
However, interest has been raised in increasing the residential opportunities.
DEPARTMENT OF COMMUNITY DEVELOPMENT
Planning Division Tel: 541-488-5305
20 East Main Street Fax: 541-488-5311
Ashland, Orc~on 97520 TTY: 800-735-2900
www.ashland.or, us
IMITS
1" = 400'
city limits
CLAY ST
TOLMAN
0
ASHLAND RAILROAD PROPERTY
MASTER PLAN
............. AT-RzANSP O RTAT-IONV-
GROWTH MANAGEMENT PROJECT
JUNE 2001
CLIENTS:
CITY OF ASHLAND
OREGON DEPARTMENT OF TRANSPORTATION
DEPARTMENT OF LAND CONSERVATION & DEVELOPMENT
SUBCONSULTANTS:
URBSWORKS, CODES
PARAMETRIX, ENVIRONMENTAL
FEHR & PEERS, TRANSPORTATION
FREGONESE / CALTHORPE, GIS
OEO~,~E ~AMER, ~STORV
LENNERTZ COYLE & ASSOCIATES ri