HomeMy WebLinkAbout23_12_19_1800 LCPC Deliberations Packet509-PA23-05532 Memorandum Date: December 12, 2023
River Road-Santa Clara Neighborhood Plan LCPC Meeting Date: December 19, 2023
Lane County Planning Commission Memo
Memorandum Date: December 12, 2023
Meeting Date: December 19, 2023
TO: Lane County Planning Commission
DEPARTMENT: Public Works, Land Management Division, Planning Department
PRESENTED BY: Jared Bauder, Lane County
Terri Harding, City of Eugene
PROJECT NAME: River Road-Santa Clara Neighborhood Plan
(City Files MA 23-5 and CA 23-3 & County File 509-PA23-05532)
I. AGENDA ITEM SUMMARY
The Lane County Planning Commission is being asked to deliberate on the River Road-Sana Clara
Neighborhood Plan and associated Metro Plan Amendments, and make a recommendation to the Board of
County Commissioners. Attached to this memo are the current draft of the Neighborhood Plan, the Metro
Plan Amendments, and the Metro Plan Amendment Findings that the LCPC is being asked to make a
recommendation on.
At the December 5th, 2023 meeting of the Eugene Planning Commission, the decision was made to move
the project forward with a unanimous recommendation for the Neighborhood Plan and the Metro Plan
amendments, which are the project elements proposed for adoption by Lane County. The Eugene
Planning Commission also recommended to move forward with the proposed amendments to the Eugene
Code with the alterations made to the Code at their deliberations meetings on November 14th and
December 5th, 2023. More specifically, they recommended a set of neighborhood-specific code
amendments including prohibiting new auto-oriented uses in the C-2 Community Commercial zone, with
a carve out on the north side of River Ave. to allow existing code provisions related to allowed uses to
remain in place in this mixed industrial commercial area. The Eugene Planning Commission also
recommended reducing the maximum building height to 65 feet (currently 120 ft.) and additional building
design standards in the C-2 zone throughout the neighborhoods.
One item to note is that originally repealing the River Road-Santa Clara Urban Facilities Plan (1987) was
a part of the adoption package, but after public testimony received and the resulting direction from the
Eugene Planning Commission, staff updated the adoption package and materials to reflect not repealing
the Urban Facilities Plan. That change is reflected in the attached adoption package materials. Once
adopted, the new Neighborhood Plan and Urban Facilities Plan will both be in effect.
III. ACTION:
A. Options for Action
Option 1: Move to recommend the proposed Neighborhood Plan and Metro Plan Amendments
as presented.
509-PA23-05532 Memorandum Date: December 12, 2023
River Road-Santa Clara Neighborhood Plan LCPC Meeting Date: December 19, 2023
Option 2: Move to recommend the proposed Neighborhood Plan and Metro Plan Amendments,
with the changes made by the Lane County Planning Commission during the December 19th,
2023 meeting.
Option 3: Move to NOT recommend the proposed Neighborhood Plan and Metro Plan
Amendments.
B. Recommendation
Staff recommends Option 1 above. The County has been working with the City and the neighborhoods
for a number of years on the proposed Neighborhood Plan, which will help provide policy direction for
County and City decisionmakers as they consider future legislative decisions. Additionally, Options 2 &
3 would result in discrepant City and County recommendations.
C. Follow Up
If the Planning Commission chooses Option 1 listed above, staff will proceed by scheduling a
work session and public hearing with the Board of County Commissioners, ultimately followed
by BCC deliberations.
ATTACHMENTS:
City of Eugene Agenda Item Summary
A. Summary of Adoption Package components (12.01.2023)
B. River Road Santa Clara Neighborhood Plan (12.01.2023)
C. Metro Plan Amendments (12.01.2023)
Exhibit A: Metro Plan Findings (12.01.2023)
AGENDA ITEM SUMMARY
December 19, 2023
To: Lane County Planning Commission
From: Terri Harding, Principal Planner & Project Manager
Elena Domingo, Associate Planner
Subject: Deliberations: River Road-Santa Clara Neighborhood Plan and Metro Plan
Amendments and River Road-Santa Clara Neighborhood-Specific
Code Amendments (City Files MA 23-5 and CA 23-3 & County File 509-PA23-
05532)
ACTION REQUESTED
At this work session, Lane County Planning Commission will deliberate on the proposed River
Road-Santa Clara Neighborhood Plan adoption package. Staff will present materials that reflect
the Eugene Planning Commission’s recommendation completed at their December 5, 2023
meeting. Lane County Planning Commission may finish deliberations and form a
recommendation to the Board of County Commissioners at this meeting.
BACKGROUND
The City of Eugene and Lane County have been working with the River Road Community
Organization (RRCO) and Santa Clara Community Organization (SCCO) since 2017 to create a
new Neighborhood Plan. After thorough community outreach, goal and policy development,
analysis, coordination, review cycles, and legal review, an adoption package has been
assembled and is proceeding through the public hearing process. The adoption package
consists of amendments to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan)
to adopt a new River Road-Santa Clara Neighborhood Plan and remove Chapter II Section F
from the Metro Plan. For Eugene, the adoption package also includes amendments to the
Eugene Code that would establish River Road and Santa Clara neighborhood-specific code
standards.
Previously, the proposed adoption package included repealing the 1987 River Road-Santa Clara
Urban Facilities Plan. However, public testimony from multiple parties proposed keeping the
1987 Plan in place alongside the new Neighborhood Plan, and the Eugene Planning Commission
directed staff to revise the adoption package accordingly. A current summary of the revised
adoption package components is provided in Attachment A.
The October 17, 2023 public hearing packet includes a detailed summary of the proposed
adoption package components, project background, and other materials. The Planning
Commission record was originally held open for two weeks, through October 31, 2023 to allow
additional testimony, which has been provided to both Commissions. At the November 14,
2023 meeting, the Eugene Planning Commission reopened the record until November 28, 2023
at 9 pm. The Lane County Planning Commission also voted to reopen the Planning Commission
record to accept materials received through November 28, 2023 at 9 pm. All written testimony
submitted through this revised close of the Planning Commission record has been submitted to
both Commissions and can also be found on the City’s land use application website.
The Eugene Planning Commission deliberated at their November 14th and December 5th
meetings. They unanimously recommended the Neighborhood Plan and Metro Plan
Amendments to City Council. They also recommended the proposed Code Amendments, as
amended during their discussions.
Repeal of 1987 River Road Santa Clara Urban Facilities Plan
Originally, the proposed adoption package included repealing the 1987 Urban Facilities Plan at
the same time as the new Neighborhood Plan was adopted. Based on a variety of testimony
submitted on this issue, along with analysis of the relationship between the two plans, staff
agreed that the 1987 Plan could remain in place alongside the new Neighborhood Plan, as the
two plans serve different functions.
However, in the event of any inconsistencies, staff have included a statement in the new
Neighborhood Plan clarifying the purpose of the new plan and the relationship between the
1987 and 2023 plans. The straw poll for this issue resulted in all Eugene Commissioners
supporting keeping the 1987 Plan in place. Therefore, Attachment A Summary of Adoption
Package Components and Attachment B River Road Santa Clara Neighborhood Plan have been
updated to reflect keeping the 1987 Plan in place and to include the statement recommended
above. The Metro Plan Amendments and Findings in Attachment C were revised accordingly.
PROCEDURAL SUMMARY
The proposed Metro Plan Amendments are subject to Type II Metro Plan Amendment
procedures (EC 9.7700 through 9.7750) and the approval criteria in EC 9.8190. The proposed
Land Use Code Amendments are subject to Type V application (legislative) procedures (EC
9.7500 through EC 9.7560), as well as the approval criteria in EC 9.8065.
Notice of the public hearing on this subject was provided consistent with the notice
requirements for Type II Metro Plan Amendment procedures and Type V (legislative) land use
application procedures, and all written testimony received through November 28, 2023 at
9:00pm has been provided to both Planning Commissions for consideration. All testimony
submitted to the Planning Commissions, as well as testimony submitted after November 28 at
9:00pm, will be forwarded to the City Council and Board of County Commissioners for their
consideration as part of their subsequent public hearing process.
As a courtesy, written testimony received by the City, along with a variety of additional
information including prior meeting materials and recordings, can also be found on the City’s
project website which also includes a link to the land use application site.
NEXT STEPS
The Lane County Planning Commission may choose to recommend the Neighborhood Plan and
Metro Plan amendments as attached or make changes to them. Following the Planning
Commission’s recommendation, the City Council will hold a joint public hearing with the Lane
County Board of Commissioners in early 2024 and each body will hold work sessions as needed
before taking final action.
ATTACHMENTS
A. Summary of Adoption Package components (12.01.2023)
B. River Road Santa Clara Neighborhood Plan (12.01.2023)
C. Metro Plan Amendments (12.01.2023)
Exhibit A: Metro Plan Findings (12.01.2023)
FOR MORE INFORMATION
More information regarding the River Road Santa Clara Neighborhood Plan project can be
found on the project webpage or by contacting staff directly:
Terri Harding, Principal Planner Elena Domingo, Associate Planner
Telephone: (541) 682-5635 Telephone: (541) 682-5002
Staff E-Mail: THarding@eugene-or.gov Staff E-Mail: EDomingo@eugene-or.gov
December 1, 2023
Attachment A
Summary of River Road-Santa Clara Neighborhood Plan
Adoption Package Components
Metro Plan Amendments
The proposal involves a Metro Plan Amendment to be considered by the City of Eugene and Lane
County to:
• adopt the new River Road- Santa Clara Neighborhood Plan
• remove Chapter II Section F from the Eugene-Springfield Metropolitan Area General Plan (Metro
Plan) and references to this section in the Table of Contents and Chapter II Introduction
Land Use Code Amendments
The proposal involves a City of Eugene Land Use Code Amendment to establish River Road and Santa
Clara neighborhood-specific code amendments within the city limits, as follows:
• In the C-2 Community Commercial Zone, applies the following design standards:
o Limit building height to 65 feet (current limit is 120 feet).
o Apply transition standards (setbacks, landscaping, and/or fencing) to new buildings and
building additions that increase the square footage of floor area by 20% or more for any
development on property abutting Low Density Residential (R-1) zoned land.
o Require buildings fronting River Road to provide a main entrance facing that street or to
the corner where River Road and another street intersect.
o Increase the minimum percentage of the street facing building façade that must be
within the maximum front yard setback, from 25% to 80%.
o Require minimum percentage of windows along the ground floor of street facing
facades and prohibit blank walls of more than 20 linear feet of any façade.
o Require weather protection features over all building entrances.
• In the C-2 Community Commercial Zone (excepting most of the River Avenue area), prohibits the
establishment of the following uses:
o Motor Vehicle Sales/Rental/Service, excluding recreational vehicles and heavy trucks
o Motorcycle Sales/Rental/Service
o Recreational Vehicles and Heavy Truck, Sales/Rental/Service
o Agricultural Machinery Rental/Sales/Service
o Boat and Watercraft Sales/Service
o Equipment, Heavy, Rental/Sales/Service – includes truck and tractor sales
o Storage Facility, Household/Consumer Goods, enclosed
• In the R-1 Low Density Residential Zone, allows the “Display and Sale of Agricultural Products
Grown Offsite” as a permitted use and include limits to size of display, hours of operation, and
signage in keeping with “small scale.”
• Amends Table 9.8010 and corresponding figure to add the new River Road- Santa Clara
Neighborhood Plan
• Adds adjustment review criteria specific to River Road-Santa Clara under EC 9.8030(39).
RIVER ROAD SANTA CLARA
Neighborhood Plan
TOPIC AREAS
1. ECONOMIC DEVELOPMENT
2. TRANSPORTATION
3.PARKS AND NATURAL
RESOURCES
4. LAND USE
5. COMMUNITY
Attachment B
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Table of Contents
Table of Contents .......................................................................................................................................... 1
Acknowledgements ....................................................................................................................................... 3
Introduction .................................................................................................................................................. 5
How to Use the Neighborhood Plan ......................................................................................................... 7
Regulatory Framework and Relationship to Other Plans and Policies ................................................... 10
How We Got Here ....................................................................................................................................... 14
Neighborhood History............................................................................................................................. 14
Past Community and Planning Efforts .................................................................................................... 16
Developing the Neighborhood Plan ........................................................................................................ 17
Planning Process Phases ......................................................................................................................... 20
River Road Corridor Study ....................................................................................................................... 22
Neighborhood Plan Visions, Goals, and Policies ......................................................................................... 23
Economic Development .......................................................................................................................... 24
Transportation ........................................................................................................................................ 25
Transportation Maps .......................................................................................................................... 26
Parks and Natural Resources .................................................................................................................. 30
Parks and Natural Resources Maps .................................................................................................... 31
Land Use .................................................................................................................................................. 33
Community .............................................................................................................................................. 35
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List of Figures
Figure 1: River Road-Santa Clara Neighborhood Plan Map .......................................................................... 6
Figure 2: River Road-Santa Clara Historical Development Patterns ........................................................... 15
Figure 3: River Road-Santa Clara Vision Map.............................................................................................. 23
Figure 4: River Road-Santa Clara Existing Transportation Map .................................................................. 27
Figure 5: River Road-Santa Clara Future Transportation Map .................................................................... 28
Figure 6: River Road-Santa Clara Street Jurisdiction Map……………………………………………………………………….29
Figure 7: River Road-Santa Clara Parks and Natural Resources Map ......................................................... 32
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Acknowledgements
Thank you to the community members who have dedicated countless hours to the development of this
Neighborhood Plan and the future of the River Road and Santa Clara neighborhoods. Special thanks to
the Community Advisory Committee for providing leadership and playing an active role throughout the
process. This work would not have been possible without you.
Community Advisory Committee Members
Jon Belcher
Carl Below
Luke Callahan
Terah Cleveland
Rick Duncan
Cameron Ewing
Jerry Finigan
Beth Gerot
Louisa de Heer
Susan Kittleson
Mary Leontovich
Ed McMahon
Michele O’Leary
Kate Perle
Harry Sanger
Rebecca Sprinson
Ann Vaughn
Louie Vidmar
Hans Wittig
Working Group Members
Bruce Barney
Vickie Barnts
Beverly Barr
Todd Berger
Peter Bolander
Joe Castino
Betty Grant
Lisa Hudson
Kevin Jones
Hillary Kittleson
Hamid Madami
Cathy Martinit
Jacqueline McClure
Jerry Mohr
Nora Morgan
Jim Neu
Steve Norris
Brian Parmelee
George Price
Christina Prince
Meredith Prochot
Gaston Ramos
Carleen Reilly
Pat Reilly
Becky Riley
Joel Robe
Vicki Roessler
Christine Rush
Julie Schaum
Jolene Siemsen
Jan Spencer
Miaya Sustaita
Cat Tanzer
Alpha Wilson
Catherine Zukowski
River Road Community Organization Board Members
Jon Belcher
Charlsey Cartwright
Mysti Frost
Dan Isaacson
Susan Kittleson
Stefan Ostrach
Clare Strawn
Carly Sylva-Gabrielson
Jacque Wurster
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Santa Clara Community Organization Board Members
Jerry Finigan
Tim Foelker
Patrick Kerr
Dawn Lesley
Jerry Mohr
Kate Perle
Terri Reed
Louie Vidmar
Matt Vohs
Triple Bottom Line Sounding Board Members
Bill Aspegren
Allen Hancock
Randy Hledik
Ela Kubok
Daniel Lombardi
Emily Reiman
Kristen Taylor
Alicia Voorhees
Members of the project staff team changed somewhat over the course of the planning period. At the
time the River Road-Santa Clara Neighborhood Plan was adopted, the following staff were part of the
core project team:
City of Eugene
Terri Harding, Principal Planner & Project Manager
Alissa Hansen, Planning Director
Elena Domingo, Associate Planner
Leah Rausch, Associate Planner
Zoli Gaudin-Dalton, Assistant Planner
Annie Loe, Urban Designer
Rob Inerfeld, Transportation Planning Manager
Carolyn Burke, Parks & Natural Resource Planning Manager
Fabio Andrade, Equity and Community Engagement Manager
Lane County
Jared Bauder, Associate Planner
Lindsey Eichner, Principal Planner
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Introduction
The River Road and Santa Clara neighborhoods are a patchwork of properties located in the City of
Eugene (incorporated) and in Lane County (unincorporated). For over 30 years, land use and
development within the River Road and Santa Clara communities have been governed solely by the
River Road-Santa Clara Urban Facilities Plan (1987). The community, the City and the County all agreed
that a plan with a forward-looking vision was needed for this large part of the community.
The River Road Community Organization (RRCO) and Santa Clara Community Organization (SCCO)
dedicated innumerable volunteer hours developing a foundation of community input on which to build
the neighborhood planning process. This work included past community and planning efforts, such as
the Santa Clara-River Road Outreach and Learning (SCRROL) and Santa Clara-River Road Implementation
Planning Team (SCRRIPT) projects. Launched in Fall 2017, the neighborhood planning process was a
collaborative effort among RRCO, SCCO, the City of Eugene, Lane County, and other stakeholders
throughout both neighborhoods. The process had six phases: Reaching Out, Neighborhood Visioning,
Neighborhood Priorities, Policy Development, Action Planning, and Adoption with opportunities for
community and stakeholder feedback throughout every phase.
The neighborhood planning process created a vision for growth and development in a manner that
respects the area’s unique characteristics and opportunities, and which will guide decision-making in
River Road and Santa Clara for decades to come. The Neighborhood Plan vision is consistent with
Envision Eugene, the community vision for how growth is managed in Eugene’s Urban Growth Boundary
(UGB), in a way that protects and enhances quality of life and reflects shared community values, while
tailoring the citywide vision to the local context. The Neighborhood Plan focuses on the Topic Areas of
Economic Development, Transportation, Parks and Natural Resources, Land Use, and Community. To
reflect the community values, aspirations and priorities expressed during outreach, each Topic Area
includes vision statements, goals, policies, and actions.
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66
Figure 1: River Road-Santa Clara Neighborhood Plan Map
(for illustrative purposes only)
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How to Use the Neighborhood Plan
The River Road-Santa Clara Neighborhood Plan is a formally adopted, legally binding land use plan. The
plan boundary follows the boundaries of RRCO and SCCO, and includes properties located inside the
Eugene city limits, properties located outside the Eugene city limits but within Eugene’s UGB, and
properties located outside Eugene’s UGB but within the boundary of the Eugene-Springfield
Metropolitan Area General Plan (Metro Plan). See Figure 1: River Road-Santa Clara Neighborhood Plan
Map.
The Neighborhood Plan provides policy direction for City and County decision-makers as they consider
future legislative decisions. Plan policies are not intended to be applied as a standard or criterion for
approving or denying a land use or development application unless such direction is specifically stated in
the policy. Land use codes adopted by the City and the County, which implement certain policies of this
Neighborhood Plan through detailed regulation, generally include the approval criteria for individual
land use applications. Finally, some of the policies in this plan are aspirational, including those policies
that call for collaboration or additional efforts from RRCO and SCCO and additional community partners.
The Neighborhood Plan is organized around five Topic Areas: Economic Development, Transportation,
Parks and Natural Resources, Land Use, and Community. Each Topic Area includes vision statements,
goals, policies, and actions. The terms “vision statement,” “goal,” “policy,” and “action” as used in this
Neighborhood Plan mean the following:
• Vision Statements are aspirational and describe the community’s best outcome for how the
neighborhood will look, feel, and function 20 years and more into the future. Each vision
statement is based on community values and aspirations expressed during the Neighborhood
Plan community engagement process. The vision statements reflect the ideal outcome if all
aspirational goals were to be attained.
• Goals are statements that describe hopes for the future of the community related to a particular
idea, and flow directly from the neighborhood vision. A goal is aspirational and may not be fully
attained within a particular time frame.
• Policies are statements adopted to provide a consistent course of action and to move the
community toward attainment of its goals. Some of the policies in the Neighborhood Plan guide
the City and County in planning and policy decisions such as: formulating proposed changes to
local land use codes and other regulatory documents; developing other work programs and
long-range planning projects; and preparation of budgets and capital improvement programs.
Other plan policies are aspirational calls for collaboration or additional efforts from the RRCO,
SCCO, and other community partners. The policies included in this plan will not be used in
determining whether the City or County should approve or deny land use or development
applications unless such direction is specifically stated in the policy.
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• Actions are possible strategies to implement the policies of this plan. The Neighborhood Plan is
supported by the non-regulatory Action Plan, which includes actions such as possible land use
code amendments, zone changes, projects, programs, and possible community partnerships.
The Action Plan is not attached to or incorporated in the Neighborhood Plan and the Action Plan
is not adopted by the City or County governing boards. The Action Plan is a separate document,
which identifies community priorities to guide implementation of the Neighborhood Plan. The
inclusion of a particular action in the Action Plan does not require implementation of that
action, nor does it prohibit the implementation of other actions, whether or not they are listed
in the Action Plan. The Action Plan identifies various local entities such as the City of
Eugene, Lane County, RCCO and SCCO, as well as additional community partners, who may lead
implementation of different actions. Some actions, such as land use code amendments and zone
changes, may require implementation by the Eugene City Council or the Lane County Board of
Commissioners. Other actions may be implemented by City or County staff, RCCO and SCCO, or
other community partners.
Implementation of the Action Plan will occur over time as committed community members
strive to improve the neighborhoods, and as resources allow. The Action Plan includes
general budget and timeframe estimates to help inform community advocacy for resources
and to inform City, County, and other community partners’ work plans and
capital project development. Some actions will require public funds and resources while other
actions will be dependent on private investments and development activities.
A set of neighborhood-specific amendments to the City of Eugene’s Land Use Code, applying
only within RRCO and SCCO, are proposed to be adopted concurrently with the Neighborhood
Plan. These amendments include changes to the C-2 Community Commercial Zone to lower the
maximum building height, add design standards, and prohibit certain auto-oriented land uses.
Additionally, the amendments include changes to the R-1 Low Density Residential Zone to allow
for the small-scale collective sale of agricultural products. These amendments reflect community
feedback and certain high priority actions in the Action Plan.
The policies under the various Topic Areas in this Neighborhood Plan are interrelated and, together,
create the plan’s policy framework. In some cases, there is overlap between policies, and in other cases,
there may be conflicts and inconsistencies between and among some policies. When making decisions
based on the Neighborhood Plan, not all the policies can be complied with to the same degree in every
instance. Use of the Neighborhood Plan requires a balancing of its various policies on a case-by-case
basis, with an emphasis on those policies most pertinent to the issue at hand.
The policies in the Neighborhood Plan vary in their scope and implications. Some call for a specific City
or County action; others are directives the City and County must address when adopting or amending
their respective land use codes or plans; and others are aspirational calls for collaboration or additional
efforts from RRCO, SCCO, and community partners. The common theme of all the policies is that each
represents an approach toward land use problem-solving and goal realization in the River Road and
Santa Clara neighborhoods. Adoption of the River Road-Santa Clara Neighborhood Plan does not
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necessarily commit the City, County, neighborhood organizations, or others to immediately carry out
each policy to the letter. The City and County will carry out the policies applicable to the City and County
to the best of their abilities, given sufficient time and resources.
Future Amendments
The Neighborhood Plan is a long-range policy document which establishes a framework for future
decision-making, however it may require updates or amendments in response to changes in the law or
circumstances important to the community.
Because the boundary of the plan includes land within the Eugene city limits, land between the Eugene
city limits and the UGB, and land outside the UGB but within the Metro Plan Boundary, the plan requires
joint adoption by Eugene and Lane County. The approval process for an amendment to the
Neighborhood Plan shall necessarily follow the Metro Plan Amendment process for two jurisdictions
(Type II process), as outlined in the Eugene-Springfield Metropolitan Area General Plan.
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Regulatory Framework and Relationship to Other Plans and Policies
The Neighborhood Plan is one plan among a variety of land use plans and regulations that exist at the
state, regional, and local level. As an adopted land use plan, the Neighborhood Plan has defined
relationships to other adopted plans.
Statewide Planning Goals
Oregon’s Statewide Land Use Planning Goals, related statutes, and
administrative rules provide a framework for all local land use planning. State
law requires each city and county to adopt a comprehensive plan, which must
be consistent with the Statewide Land Use Planning Goals, as well as the
zoning and land division ordinances necessary to effectuate the
comprehensive plan.
Other Adopted Land Use Plans
At the local and regional level, the two applicable comprehensive plans are
the Envision Eugene Comprehensive Plan and the Eugene-Springfield
Metropolitan Area General Plan (Metro Plan).
Envision Eugene Comprehensive Plan
Envision Eugene is the community vision for how growth is managed in
Eugene’s UGB in a way that protects and enhances quality of life and reflects
Eugene’s shared values. The Envision Eugene Comprehensive Plan, the
regulatory component of Envision Eugene, is the basic guiding policy
document for land use planning within Eugene’s UGB and addresses the
future of Eugene through goals and regulatory policies regarding land use.
Eugene-Springfield Metropolitan Area General Plan (Metro Plan)
The Metro Plan is the basic guiding land use policy document for regional land use planning and applies
to the Cities of Eugene and Springfield and areas of Lane County within the Metro Plan boundary.
The Neighborhood Plan must be consistent with applicable provisions in both the Envision Eugene
Comprehensive Plan and the Metro Plan. If inconsistencies occur between the Neighborhood Plan and
the Envision Eugene Comprehensive Plan, the Envision Eugene Comprehensive Plan is the prevailing
policy document. If inconsistencies occur between the Neighborhood Plan and the Metro Plan, the
Metro Plan is the prevailing policy document. As provided in the Envision Eugene Comprehensive Plan,
for properties located within Eugene’s UGB, if inconsistencies occur between the Envision Eugene
Comprehensive Plan and the Metro Plan, the Envision Eugene Comprehensive Plan is the prevailing
policy document.
Major Related Plans and Programs
The River Road and Santa Clara neighborhoods are a patchwork of properties located within the City of
Eugene (incorporated) and Lane County (unincorporated), and there are related City and County plans
and programs that apply to this area. Following is a summary of key City and County plans and programs
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in place at the time of Neighborhood Plan adoption that relate to the Neighborhood Plan goals, policies,
and actions.
River Road-Santa Clara Urban Facilities Plan (1987)
The 1987 River Road-Santa Urban Facilities Plan (the 1987 Plan) was adopted in part to address
groundwater contamination by septic systems in the River Road Santa Clara area and to act as a
planning document for the provision of urban facilities, including sanitary sewer systems to the area.
The 1987 plan also contains land use policies applicable to individual land use applications and a land
use diagram for the plan area. The area encompassed by the 1987 Plan is slightly different from the area
encompassed by the Neighborhood Plan, so there may be some areas within the Neighborhood Plan
boundary that are not governed by the 1987 Plan. If inconsistencies occur between the Neighborhood
Plan and the 1987 Plan, the Neighborhood Plan is the prevailing policy document.
Eugene 2035 Transportation System Plan
Eugene’s 2035 Transportation System Plan (TSP) establishes a system of transportation facilities and
services that will meet the needs of Eugene residents, businesses, and visitors through 2035, consistent
with the Envision Eugene Comprehensive Plan and compliant with Statewide Planning Goal 12
(Transportation). By addressing all modes of travel, the Eugene 2035 TSP is designed to meet Eugene’s
transportation needs as they evolve in the future and to increase transportation choices available
throughout the community. The TSP serves as the City of Eugene’s local transportation system plan and
pedestrian and bicycle master plan. The Eugene TSP incudes a list of projects, including specific projects
in the River Road-Santa Clara area, for implementation through 2035.
Eugene Vision Zero Action Plan
Vision Zero is an approach to transportation safety that aims to eliminate deaths and lifechanging
injuries caused by traffic crashes – this is the goal of implementing Eugene’s Vision Zero Action Plan. The
Vision Zero approach helps with educating the community on local traffic safety issues and enabling the
City of Eugene to prioritize resources based on evidence of the greatest need and impact.
Lane County Transportation System Plan
The Lane County Transportation System Plan (TSP) establishes Lane County’s transportation policies and
identifies transportation projects needed through 2036 to meet the needs of the community. As a 20-
year policy and investment guide, the County’s TSP addresses major systems rather than ongoing
operations and maintenance activities.
See Figures 4: Existing Transportation Map, 5: Future Transportation Map, and 6: Street Jurisdiction Map
to learn more about City, County, and private streets and infrastructure.
Eugene Parks and Recreation System Plan
The Eugene Parks and Recreation System Plan (PRSP), adopted in 2018, is a 30-year strategic plan with
implementation recommendations for the first 10 years. The Eugene PRSP includes new parks and trails,
improved access to the Willamette River, revitalized pools and community centers, greater connectivity,
and more recreation opportunities in underserved areas. The PRSP’s long-term vision includes many
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specific projects - to see a list of priority 1, 2, and 3 projects in the River Road-Santa Clara area, see the
Planning District Summary in the PRSP.
Eugene Stormwater Basin Master Plan
The Eugene Stormwater Basin Master Plan includes goals and objectives, implementation strategies,
study area characteristics, and methods for evaluating flood control, water quality, and open
waterways. The Stormwater Basin Master Plan is broken into volumes, with a stormwater management
strategy for each basin, including River Road-Santa Clara.
Lane County Stormwater Management Program
The County’s stormwater management program addresses control measures to reduce pollutants
discharged into waterbodies, including illicit discharge detection. The County works closely with the City
of Eugene on stormwater issues, although both jurisdictions maintain an inventory of their stormwater
infrastructure and conduct regular maintenance activities.
Eugene Climate Action Plan
The Climate Action Plan (CAP 2.0) was developed to outline the types of bold actions needed to reach
Eugene’s community-wide Climate Recovery Ordinance goals. The CAP 2.0 captures the actions the
community is prepared to implement, as well as community ideas for what else is needed to create an
equitable and livable community for everyone. Some of these actions relate to transportation options,
housing, stormwater management, urban forestry practices, and community resilience.
Eugene Capital Improvement Program
Eugene’s Capital Improvement Program (CIP) provides a six-year funding plan for the City’s capital
improvements, including airport, parks and open space, public buildings, stormwater, transportation,
and wastewater projects. Capital projects are generally large-scale endeavors in terms of cost, size, and
benefit to the community and needs are based on various City-adopted long-range plans, goals, and
policies.
Additional Related Plans, Manuals, Resources, and Programs
The Neighborhood Plan is a long-range planning document that identifies needs throughout the two
neighborhoods that relate to many different topics. There are several other plans, manuals, resources,
and programs that relate to the goals and policies in this Neighborhood Plan. They include, but are not
limited to, the following:
• Beltline Facility Plan
• City of Eugene Complete Street Design Guide
• City of Eugene Green Building Resources
• City of Eugene Historic Loan Program
• City of Eugene Housing Implementation Pipeline (HIP)
• City of Eugene Parks and Recreation Bond and Levy Projects
• City of Eugene Urban Forestry Program
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• City of Eugene Urban Reserves
• City of Eugene Water Quality Overlay Zone
• City of Eugene Water Resources Conservation Overlay Zone
• MovingAhead
• Rivers to Ridges Regional Parks and Open Space Vision
• Safe Routes to School
• Sidewalk Inventory
• Transportation Options: Strategies for a Growing Eugene
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How We Got Here
Neighborhood planning took place between 2017 and 2023, but it builds on a legacy of community
organizing and planning, as well as the natural environment, built environment, and community features
that make the River Road and Santa Clara neighborhoods distinct. This section summarizes the path to
creating the Neighborhood Plan, beginning with the neighborhood’s history through to plan adoption.
Neighborhood History
The River Road and Santa Clara communities are oriented around River Road, which now runs on top of
an established indigenous peoples’ trail, moving north-south through these communities. In the
northernmost portion of Eugene’s UGB, the Santa Clara area encompasses about 2,400 acres and has
physical borders that include the Willamette River to the east, Randy Pape Beltline Road to the south,
and Northwest Expressway to the west. Just south of Santa Clara is the River Road community which
encompasses about 1,700 acres and is bordered by the Willamette River to the east, Beltline Road to the
north, Northwest Expressway and Railroad Yard to the west, and Thomason Lane to the south, adjoining
the Whiteaker Neighborhood. See Figure 1: River Road-Santa Clara Neighborhood Plan Map.
The areas known today as River Road and Santa Clara lie within the traditional homeland of the
Kalapuya people. From time immemorial, within the context of the Willamette Valley’s mosaic of
majestic landscapes and ecologies, the Kalapuya bands have accessed the natural resources made
available by way of the walamɘt, or what is today known as the Willamette River and the Valley’s fertile,
nutrient-rich soils.
Given the available resources and the potential for agricultural land, the area was also attractive to non-
indigenous settlers. Beginning in 1840, these settlers arrived in the Oregon territory by way of the
Oregon Trail. Diseases, introduced to the Valley by settlers, decimated the indigenous populations. By
1850, more than 90 percent of the Native population had died in an onslaught of repeated epidemics.
Today, the Kalapuya people are modern Indigenous community members who continue to practice
reverence and traditional connection to the Willamette River and Valley. (Learn more about the
Kalapuyan people of Oregon at https://fiveoaksmuseum.org/exhibit/this-is-kalapuyan-land/.)
In the 1850s, this area was settled by scattered subsistence farm operations. Over time, commercial
agriculture became the preeminent land use, especially with the construction of the Oregon and
California Railroad in 1871, which was associated with transporting agricultural products.
Though residential construction continuously increased throughout the early 1900s, the River Road and
Santa Clara communities remained predominantly agricultural in character until post-World War II
increases in Eugene’s population spurred the siting and development of more subdivisions and homes
within both communities. The rapid increase in population correlated with an estimated 45 percent of
the River Road area’s residences being constructed between 1940 and 1959. The result was a continued
decrease in average farm size, declining agricultural production, and a checkerboard landscape of homes
and farmland. As urbanization accelerated during the late 1940s and 1950s, Santa Clara also
experienced increases in commercial development.
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River Road, designated Pacific Highway in 1923, was once the only major link between Portland and
California. This designation of River Road as a state highway greatly influenced much of the
development experienced in the River Road and Santa Clara communities. According to land use studies
from the 1930s and 1940s, the majority of the roads in the area were created to provide access to River
Road. Later, the completion of Beltline Highway (1970) and Northwest Expressway (1980) further
facilitated development; this development resulted in changes to the use of the land. Generally, land
uses shifted from being primarily farmland to an increase in subdivisions and the presence of homes.
Post-World War II growth brought with it the development of educational and religious facilities. In
1945, River Road and Santa Clara school districts joined Eugene School District No. 4, and five schools
were built in the River Road community. The area also experienced an increase in church construction
during the 1950s and 1960s. Though church construction had previously been limited to the downtown
core, over this period of rapid growth, construction of churches began to take place in areas outside of
downtown.
Figure 2: River Road and Santa Clara Historical Development Patterns
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Continued Development and Annexation
Development continued to urbanize both communities, bringing aspects of in-town communities, such
as curved streets and cul-de-sacs, to River Road and Santa Clara by 1975. Accompanying these
transformations to the built environment were continuing conversations around how these
communities could be incorporated into the City’s jurisdiction and how urban services, such as
electricity, water, transportation, and sewer, would be provided to the area.
Annexation, sometimes called “incorporation,” is the legal process by which properties located in a
county become part of a city (“incorporated”) and thus eligible to receive city services. In 1982, the
adopted regional Metro Plan governing planning efforts of Eugene, Springfield, and Lane County,
established the regional UGB and included policies requiring that if new development occurred on
properties within the UGB, the properties in question would be annexed to the appropriate city, either
Eugene or Springfield.
Sanitary Sewer Service and Patchwork Jurisdiction
Later in the 1980s, a groundwater pollution problem in the area led to the State of Oregon mandating
the provision of sanitary sewers. The Metro Plan specified that cities were the sole providers of sewers
in the metro area, which meant the City of Eugene was responsible for providing sewers to River Road
and Santa Clara. While the City originally intended to provide sewer service to individual properties that
chose to voluntarily annex, in order to reduce the groundwater pollution problem, Eugene extended
wastewater service to developed properties regardless of whether a property owner chose to annex.
These processes resulted in tensions between River Road and Santa Clara community residents and the
City. The legacy of these tensions has led to the continued jurisdictional fragmentation of these
communities, with some residents integrated into the Eugene City limits and others remaining within
the Lane County jurisdiction—all of which contributed to the checkerboard pattern of City and County
properties seen throughout the River Road and Santa Clara neighborhoods today and created
inefficiencies in the provision of services and confusion for residents and agencies alike.
Policies in the Metro Plan now encourage annexation as the preferred means of providing urban
services to new development. Annexation is voluntary; however, it is typically required when a property
owner proposes to develop a property that is within the UGB but not within city limits as a condition of
certain land use approvals. In the City of Eugene, annexations must be approved by the Eugene City
Council, and the property must be contiguous to the city limits or separated from the city limits only by
a public right of way or a stream, bay, lake or other body of water.
Past Community and Planning Efforts
Adopted in 1987, the River Road-Santa Clara Urban Facilities Plan has governed land use and
development in the River Road and Santa Clara communities for over 30 years. A number of planning
efforts have occurred in River Road and Santa Clara in the years since the Urban Facilities Plan was
adopted, leading up to and informing the formal Neighborhood Planning process that began in 2017.
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Published in 2006, “Eugene’s Historic River Road” document was the result of a year-long collaboration
between Historic Preservation Northwest, City of Eugene Planning staff, and members of the public. The
document was intended to assist in the preparation of City and County policies pertaining to the
identification and protection of historic resources in the area.
Initiated in 2007 and acknowledged by the Eugene Planning Commission in 2009, the Lower River Road
Concept Plan supported planning efforts for the Rasor Mixed-Use Center. Lower River Road was
identified in the regional transportation master plan, TransPlan (2001), as a potential area for mixed-use
redevelopment. This planning process brought diverse elements of the community together to propose
over thirty recommendations related to the vision for Lower River Road and to evaluate implementation
strategies related to sustainability, transportation, and land use.
Santa Clara-River Road Outreach and Learning (SCRROL)
RRCO and SCCO joined together in February 2011 on an
ambitious public outreach project to survey area residents and
identify priorities for the future development of both
neighborhoods. Known as the Santa Clara-River Road Outreach
and Learning (SCRROL) project, their mission statement was: To
develop a community-wide, shared knowledge about challenges
and opportunities in our growing and changing neighborhoods
that can inform collaborative decisions in the future. They
identified community priorities and facilitated community
dialogue on land use, governance, parks and recreation, and
transportation. This outreach work resulted in a Report and
Recommendations document that included key findings about
what was important to the neighborhood residents and a list of
recommendations.
Santa Clara-River Road Implementation Planning Team
(SCRRIPT)
SCRROL’s Report and Recommendations included a recommendation to form a new advocacy group
named the Santa Clara-River Road Implementation Planning Team (SCRRIPT), a task force to be
composed of River Road and Santa Clara representatives to work on common goals. SCRRIPT would
function similar to SCRROL but was created to be more proactive in advocating for specific solutions and
implementing the goals identified by SCRROL.
Throughout the SCRROL and SCRRIPT planning initiatives, the community organizations dedicated
countless volunteer hours in reaching out to and engaging neighbors. The results formed a foundation
for the Neighborhood Plan.
Developing the Neighborhood Plan
SCRRIPT and SCRROL, among other efforts by RRCO and SCCO, laid the foundation for the neighborhood
planning process. Launched in fall 2017, neighborhood planning was a collaborative effort among the
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RRCO and SCCO, the City of Eugene, Lane County, and other stakeholders throughout both
neighborhoods to create a vision for growth and development in a manner that respects the area’s
unique characteristics and opportunities, which will guide decision-making in River Road and Santa Clara
for decades to come. The process was guided by a project charter that outlined the decision-making
structure, and a public involvement plan that focused on community outreach.
Project Roles
Early in the neighborhood planning process, City and County staff worked with the RRCO and SCCO to
establish project roles and various technical and working groups. Some of these groups worked through
the duration of the planning process, while others formed for a specific purpose during a particular
phase. The roles of the primary groups included:
Community Organizations: RRCO and SCCO played an integral role in the development of the
Neighborhood Plan, through all phases of the project. But their role doesn’t end at adoption. Ongoing
implementation of the Neighborhood Plan will include continued collaboration between the City,
County, community partners, and the community organizations.
Project Management Team: The project management team consisted of the Community Advisory
Committee (CAC) co-chairs, one from River Road and one from Santa Clara, and City and County
Planning staff tasked with guiding the process, including coordination and communication with the
community and key stakeholders.
Community Advisory Committee (CAC): The CAC consisted of 11 voting members, with two alternates,
nominated by the RRCO and SCCO Boards and appointed by the Eugene Planning Commission to
represent the varied voices of the two communities. The CAC included both residents and property
owners, including a member representing areas outside Eugene’s UGB. Representatives from special
districts serving the community were also encouraged to participate in the process. The CAC committed
to creating a Neighborhood Plan, adopted by the City and County, to advance the community vision of
the River Road and Santa Clara neighborhoods while being consistent with Envision Eugene. The CAC
acted as a representative body for the two neighborhoods and strived to weigh the varied input from
residents, businesses, property owners, local appointed and elected officials, and RRCO and SCCO. The
CAC employed the following principles:
• Be prepared and able to act in a deliberative, considerate, and civil manner
• Respect diverse community demographics and varied interests
• Weigh the perspectives and input of the whole community
• Practice decision-making that places the needs and desires of the entire neighborhood first
The CAC participated in outreach efforts and Topic Area Working Groups and led development of vision
statements, goals, policies, and actions. The CAC worked collaboratively with staff to support the
Neighborhood Plan’s formal adoption process. The CAC made a final community recommendation, along
with RRCO and SCCO, on the Neighborhood Plan adoption package.
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Topic Area Working Groups: Topic Area Working Groups were ad hoc, flexible groups comprised of
members of the public, RRCO and SCCO, and CAC members interested in diving deeper into specific
Topic Area details. The groups worked with the CAC to translate community input on best outcomes for
the future into vision statements, goals, policies, and actions. The working groups collaborated with the
CAC, project management team, and Technical Advisory Committee to develop the plan and
participated in outreach throughout the process.
City and County Coordination: The Technical Advisory Committee (TAC), comprised of City, County, and
Lane Transit District staff, served as an advisory body to the project management team, CAC, and Topic
Area Working Groups. The TAC included input from City and County staff who work on subjects such as
transportation, parks, stormwater, economic development, and land use planning. The TAC provided
technical support related to the Topic Areas, vetted ideas for feasibility in balance with local budgets
and priorities and communicated how neighborhood-specific issues fit within the broader City or County
context. Additionally, City and County coordination teams included local elected officials and City and
County department executives who provided policy direction at critical junctures, as well as a
connection with local decision-makers.
Planning Commissions: The Eugene and Lane County planning commissions provided feedback and
guidance throughout the process, including reviewing and approving the project charter and public
involvement plan, appointing CAC members, and providing feedback on the plan components, including
land use code changes to support the Neighborhood Plan vision.
General Public: The neighborhood planning process included early and ongoing opportunities for the
public and key stakeholders to share ideas, raise concerns, and provide feedback. Stakeholders included
area property owners, residents, business owners and employees, advocacy groups, and public and non-
profit organizations, among others. The project management team crafted a public engagement process
that was:
• Meaningful: create a vision crafted with beauty, fun, warmth, and welcome
• Accountable: respond to ideas, critique, comments, and praise
• Inclusive: communicate with all stakeholders, including communicating with the under-
represented, communicating outside of structured meetings, and communicating in ways that
people understand and can relate to
• Transparent: make decisions public; share information in a variety of formats and places
• Realistic: inform about constraints, opportunities, and objectives
• Outcome-oriented: create a community-supported and Council-adopted neighborhood plan!
Early outreach focused on asking the community what they value in their neighborhoods now and about
their hopes and visions for the future, which was used to inform development of the Neighborhood
Plan. Outreach continued throughout each phase to share updates and gather feedback.
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Planning Process Phases
The sections below summarize the six phases of the neighborhood planning process: Reaching Out,
Neighborhood Visioning, Neighborhood Priorities, Policy Development, Action Planning, and Adoption.
Each includes a summary of key stakeholder input and opportunities for public involvement.
Reaching Out Phase
In the summer of 2017, RRCO, SCCO, and staff began the ‘Reaching Out’ phase with three objectives:
1. Raise awareness about the project
2. Promote the fall communitywide kick-off event
3. Create opportunities for people to provide input on the future of their community
The project team began raising awareness about the project by meeting with neighbors throughout the
community, attending more than 20 events in advance of the fall kick-off event. Nearly 400 people
attended the kick-off event and participated in activities to identify what residents value about the area,
as well as sharing their future hopes for the neighborhood. The project team made an effort to engage
fresh voices, with outreach events specific to high school students, affordable housing residents, Spanish
speakers, and rural residents in Santa Clara, in partnership with local community organizations. The
project team also visited with over 300 neighborhood businesses.
Neighborhood Visioning and Neighborhood Priorities Phases
The Visioning and Priorities phases continued focusing on raising awareness of the project and asking
the community what they valued in their neighborhoods as well as their hopes for the future. The CAC
and the Topic Area Working Groups met monthly to compile and review the feedback received during
the Reaching Out phase, recognizing the priorities and values heard during this process, as well as the
many years of engagement done in the community by SCRROL and SCRRIPT. Different themes emerged
from the community feedback and the Neighborhood Plan began to develop around five main Topic
Areas: Economic Development, Transportation, Parks and Natural Resources, Land Use, and Community.
A vision for the future of the River Road and Santa Clara communities started to appear.
The CAC and Working Groups continued public outreach, including questionnaires, community forums,
an online survey, and several targeted outreach events. Using this widespread input from the
community, the CAC and Working Groups moved into the Policy Development phase and started
crafting the vision statements, goals, and policies of the Neighborhood Plan.
Policy Development Phase
In this phase, work focused on drafting policies related to the vision and neighborhood priorities
developed from community input. Throughout the Policy Development phase, Working Group meetings
were held periodically and interested community members were welcome to attend. Policy writing was
led by the CAC and supported by staff on the Technical Advisory Committee as well as Working Group
members. The CAC hosted a “Policy Round-Up” and a “Planning in Action Open House” to engage the
public in reviewing and prioritizing draft policies.
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Additionally, the TAC completed a policy review to ensure the draft policies aligned with existing City
and County policies. After initial community and staff review, the project team convened a Triple
Bottom Line (TBL) Sounding Board meeting to provide a citywide perspective about the equity,
environmental, and economic implications of proposed goals and policies in the Neighborhood Plan. The
TBL Sounding Board communicated with City and County committees to keep them informed and
engaged. The TBL Sounding Board included representatives from the following boards and commissions:
• Eugene Planning Commission
• Lane County Planning Commission
• Eugene Human Rights Commission
• Eugene Sustainability Commission
• Eugene Active Transportation
Committee
• Intergovernmental Housing Policy
Board
• Eugene Historic Review Board
• Eugene Budget Committee
• Eugene Neighborhood Leaders
Council
In May 2019, the Eugene City Council approved utilizing the draft goals and policies as a platform for
moving into the Action Planning Phase.
Action Planning Phase
The Action Planning Phase focused on drafting, evaluating and prioritizing actions to implement the
draft policies. Refining the action items was a collaborative process among the CAC, Working Group
members, and City, County, and partner agency staff to incorporate community and technical feedback.
The project team hosted a variety of public outreach events to inform the Neighborhood Plan actions,
including a City of Eugene Planning Division Project Fair at the Downtown Library, a ‘Pumpkin Pie and
Planning’ event in the neighborhood, a series of small group discussions called ‘Neighborhood
Conversations,’ and a second TBL Sounding Board Meeting.
The meetings provided the opportunity for groups of staff, volunteers, and community members to
discuss elements of the land use changes; sharing support and reservations. In mid-March 2020, the
COVID-19 pandemic hit and slowed down the engagement process. However, after receiving
comprehensive feedback from previous engagement, the CAC continued to meet virtually on Zoom each
month and refine the draft actions. The project team mailed postcards to specific properties, which
included commercially zoned areas and key large church properties beyond the corridor that were
targeted for potential zone changes/land use code changes to support potential future redevelopment.
The postcards were intended to solicit feedback from tenants and property owners about these
potential changes.
The RRCO and SCCO continued their review and provided input on the draft actions proposed in each
Topic Area. In May 2021, the project team received direction from the Eugene City Council and Lane
County Board of Commissioners to move into the Adoption Phase and to prepare a plan adoption
package for community review.
Adoption Phase
In 2022, City staff offered a path to adoption that built on broad community agreement and the
extensive engagement, collaboration, and community volunteer hours dedicated to the neighborhood
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planning process since 2017. The proposed path forward also recognized the challenges and changes
faced between 2020 and 2022, including the COVID-19 pandemic, state mandates for other planning
priorities, staff changes, and resource constraints. The project management team worked to refine a
final adoption package, including a refined set of neighborhood-specific land use code amendments to
achieve many of the land use goals outlined in the Plan. The River Road-Santa Clara Neighborhood Plan
adoption package is comprised of the Neighborhood Plan document and neighborhood-specific code
amendments addressing important topics like commercial development standards and transitions
between commercial mixed-use and lower density residential areas. While not a part of the adoption
package, the Action Plan, which acts as a non-regulatory guidance document, remains an important part
of the planning effort.
*Placeholder to continue describing adoption process once complete.*
River Road Corridor Study
One desired outcome of the Neighborhood Plan is to improve conditions along River Road, which is
identified as a key transit corridor in Envision Eugene. The River Road Corridor Study was a concurrent
planning process that integrated the Neighborhood Plan vision for active mixed-use neighborhood
centers along the River Road corridor and a transportation system that is safe, accessible, affordable,
environmentally responsible and transitions to zero carbon.
The River Road Corridor Study included an in-depth analysis of the River Road corridor, from Northwest
Expressway to Hunsaker Lane, funded by a Federal Transit Administration grant awarded to Lane Transit
District and the City of Eugene. The Corridor Study included stakeholder interviews, public workshops,
economic and demographic research, and conceptual design work, which resulted in land use and
multimodal recommendations to encourage mixed-use neighborhood centers and a variety of housing
types; integrating how people get around, where they shop and live, and how the corridor looks and
feels to support implementation of the community vision along River Road.
Recommendations from the River Road Corridor Study were incorporated into the Neighborhood Plan
vision, goals, and policies, as well as the neighborhood-specific land use code amendments and the
Action Plan. The string of pearls concept along River Road (illustrated in Figure 1: River Road-Santa Clara
Neighborhood Plan Map) originated from this study.
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Neighborhood Plan Visions, Goals, and Policies
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Economic Development
Vision Statement
Economic
Development
Goal 1: Improve the neighborhood economy and empower local residents by encouraging the
growth and creation of local businesses.
Policy 1.1 Incentives for Local Businesses: Help neighborhood businesses use existing local,
regional, and state loan programs to support growth and creation of neighborhood businesses.
Policy 1.2 Neighborhood Assets: Support business development that utilizes neighborhood assets.
Policy 1.3 Patronage of Locally Owned Businesses: Encourage patronage of locally owned
businesses through community organization efforts such as marketing, education, and events.
Policy 1.4 Regulatory Environment: Strive for a local regulatory environment that is supportive of
economic development in line with neighborhood vision (such as creating small commercial nodes)
Goal 2: Promote redevelopment that enhances walkability and increases access to daily
needs.1
Policy 2.1 Vibrancy: Incentivize and support redevelopment that fosters active mixed-use
neighborhood centers.
Policy 2.2 Small Business Development: Promote small business development that supports
active mixed-use neighborhood centers by identifying local funding sources and continuing local
outreach and assistance to small business owners.
Goal 3: Promote living wage employment opportunities within the neighborhood.
Policy 3.1 Residential Employment: Encourage businesses in residentially zoned areas at a scale
that complements the surrounding neighborhood.
Policy 3.2 Employment Opportunities: Promote the creation of employment opportunities that
offer a living wage.
1 Examples of daily needs include grocery stores, pharmacies, and other necessary services.
The River Road and Santa Clara communities support sustainable economic development, a variety of
employment opportunities for all residents, and local entrepreneurship. Economic activity, especially
that of local businesses, contributes to a shared neighborhood identity, while providing places to
gather and build community. Natural assets, such as the river and fertile soils, benefit local residents
and support thriving businesses. Residents can safely access essential goods and services within a
short distance from home.
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Transportation
Vision Statement
Transportation
Goal 4: Implement a transportation system that is designed to be safe for all users.
Policy 4.1 Safety and Accessibility: Improve safety and accessibility for people walking, biking,
and using mobility devices.
Policy 4.2 Riverfront Paths: Improve safety enhancements and amenities along riverfront
shared use paths.
Goal 5: Promote a connected and efficient multi-modal transportation system that is
equitable and affordable and addresses congestion on River Road.
Policy 5.1 Regional Transportation Network: Work towards convenient, equitable, and
affordable access to a regional pedestrian, bicycle, transit, and vehicle network throughout the
River Road and Santa Clara neighborhoods.
Policy 5.2 Transit: Support affordable public transit along River Road from the Urban Growth
Boundary to the rest of Eugene in collaboration with Lane Transit District.
Policy 5.3 Active Transportation to Commercial Centers: Expand active transportation networks
that connect neighborhoods to their adjacent commercial areas, schools, and community
gathering spaces.
Policy 5.4 Traffic Management: Prioritize transportation infrastructure improvements to
support the traffic flow and enhance safety objectives.
Policy 5.5 Public Right-of-Way Management: City and County will continue to cooperatively
work towards addressing jurisdictional issues in the right of way, including parking,
maintenance, street improvements, and annexation issues.
Goal 6: Plan for a transportation system that is future oriented, environmentally responsible,
and transitions to zero carbon.
Policy 6.1 Zero Carbon: Transition transportation system toward zero carbon by prioritizing
improvements that support seamless connections for switching between modes, active
transportation options, ride sharing, and electric vehicle use.
Policy 6.2 Education and Youth Engagement: Educate current and future users of the
transportation system about active transportation options and transit, tapping into existing
resources like Safe Routes to School and City of Eugene youth recreation programs.
The integrated transportation system in River Road and Santa Clara is safe, efficient, and accessible
for people of all ages, abilities, and socio-economic levels who choose to bike, walk, drive, or use
public transit. This system supports redevelopment, economic opportunity, and affordable,
convenient access to daily needs. The design of the transportation system enhances the sense of
place and responds to the evolving needs of the community. Our transportation system is
environmentally responsible and supports low carbon transportation options.
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Policy 6.3 Future Transportation Needs: Support a transportation system that responds to the
long-term needs of the River Road and Santa Clara neighborhoods.
Policy 6.4 Street Design: Apply appropriate design standards to address the distinct types of
travel lanes typical of the River Road and Santa Clara neighborhoods, consistent with City and
County guidelines.
Transportation Maps
The Existing and Future Transportation Maps on the following pages include City, County, and private
streets and infrastructure, as well as planned improvements from the 2035 Eugene Transportation
System Plan and Safe Routes to School program priorities. The Street Jurisdiction Map illustrates streets
within the jurisdiction of the City and County.
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Parks and Natural Resources
Vision Statement
Parks and
Natural Resources
Goal 7: Maintain and create natural areas which are healthy, thriving spaces that provide
habitat for native species and function as natural infrastructure.
Policy 7.1 Stormwater Conveyances: Enhance natural stormwater conveyances to reduce
pollution, increase infiltration, protect against flooding, and improve habitat.
Policy 7.2 Stormwater Education: Educate the public about the interconnectedness of function
and safety in our natural stormwater system through City and community collaboration.
Policy 7.3 Habitat Corridors: Create new and enhance existing habitat corridors throughout the
River Road and Santa Clara neighborhoods through community organizing and collaboration
with local service providers to conduct outreach and education to property owners.
Policy 7.4 Public Natural Areas: Create new and enhance existing natural areas, including within
the Willamette River Greenway, that are accessible to all residents.
Policy 7.5 Tree Canopy: Promote, conserve, protect, and improve our urban forest by preserving
and planting street trees and encouraging private property owners to plant trees with education
and incentives, consistent with Eugene’s Urban Forestry program.
Goal 8: Provide neighborhood access to recreational opportunities, parks, and community
centers.
Policy 8.1 Parks Access: Plan for all residents to have access to parks or publicly owned open
space within one-half-mile walking distance of their residence.
Policy 8.2 Connectivity: Improve connectivity between parks, natural areas, and public open
spaces.
Policy 8.3 Recreational Opportunities and Community Centers: Enhance equitable access to
recreational opportunities and well-maintained community centers.
River Road and Santa Clara celebrate a rich diversity of private and shared green spaces, including
parks and recreation facilities, natural areas that support native plants and wildlife, and farmland for
food production. All residents have a clean, safe, accessible, and well-maintained park or recreation
facility close to their home. Residents have access to the Willamette River, which is celebrated as a
natural asset, a defining characteristic of both neighborhoods, and a statewide resource. Natural
assets, such as the tree canopy, soils, and the watershed are protected for future generations and are
highly valued and cared for as natural infrastructure that enhances ecosystem health, provides
opportunities for recreation, and supports the working landscape.
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Goal 9: Make the Willamette River a vital, healthy, and accessible part of the neighborhoods.
Policy 9.1 Safe and Convenient Access: Provide safe and convenient access to the riverbank
park system for people walking, biking, and using mobility devices.
Policy 9.2 Stewardship of the Willamette River Ecosystem: Work with the community and non-
profit organizations to balance preservation and access to the river.
Policy 9.3 Recreational Uses: Promote accessible recreational uses along the Willamette River
edge in partnership with local service providers to improve access to the river and provide
amenities and programs.
Goal 10: Preserve agricultural land and open spaces within the Neighborhood Plan boundary.
Policy 10.1 Agricultural Land Preservation outside the Eugene Urban Growth Boundary (UGB):
Preserve high value farmland (Class 1 and Class 2 soils) outside the UGB for farm use, where
feasible or as the state allows.
Policy 10.2 Open Space Preservation: Promote a network of publicly and privately-owned open
space areas in collaboration with local service providers and private property owners.
Policy 10.3 Agricultural Enterprises within the UGB: Promote agricultural enterprises within the
UGB through legislative updates to local land use regulations, incentives, and collaboration with
private property owners.
Parks and Natural Resources Maps
The Parks and Natural Resources Map on the following page includes City of Eugene Parks and Open
Space projects as of 2023, existing parks, open space, and public lands within the neighborhoods, and
other wetland, riparian, and habitat resources.
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Figure 6: River Road-Santa Clara Parks and Natural Resources Map
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Land Use
Vision Statement
Land Use
Goal 11: Support development that is well designed and economically, socially, and
environmentally sustainable.
Policy 11.1 Effective Public Process for Development: Encourage effective collaboration
between developers, public agencies, and neighbors through legislative updates to local land
use regulations.
Policy 11.2 Well Designed Built Environment: Update design standards through legislative
updates to local land use regulations so that they provide for gradual transitions between
different uses and scales and incorporate pedestrian scale design through building design, size,
scale, and site layout requirements.
Policy 11.3 Well Designed Community Space: Help build a sense of community by using
welcoming and well-designed public and private community space.
Policy 11.4 Green and Resilient Properties: Encourage actions on residential, commercial, and
public properties that enhance food and energy production, water storage and conservation,
and tree canopy through programs, incentives, and legislative updates to local land use
regulations.
Goal 12: Plan for future housing that addresses the needs of the community.
Policy 12.1 Compatible Infill: Encourage innovative and creative housing options and infill, and
incorporate pedestrian scale design through building design, size, scale, and site layout
requirements through legislative updates to local land use regulations.
Policy 12.2 Affordable Availability: Plan for affordable and moderate-income housing
throughout the River Road and Santa Clara neighborhoods through strategies, funding,
partnerships, and execution of the City and County’s housing plans.
Policy 12.3 Innovative Housing Strategies: Pursue innovative housing strategies through
collaborative planning efforts between the River Road and Santa Clara neighborhood
organizations, the City, the County, and local service providers.
Land use in River Road and Santa Clara supports neighborhood character and local identity, including
our long-standing agricultural heritage and high value soils. Our neighborhoods are walkable, with a
range of housing types affordable to all residents. Abundant shops, services, and community spaces
are served by a variety of transportation options. Strategic development and revitalization in more
urban locations, especially the River Road corridor, helps maintain neighborhood character while
meeting our housing and economic needs in a way that is environmentally responsible. Development
is well designed, sustainable, and compatible with existing surroundings. Development adjacent to the
Willamette River greenway improves safety, enhances access, and respects ecological functions.
34
Draft | December 1, 2023
Policy 12.4 Monitoring and Implementation: At five-year intervals after adoption of the
Neighborhood Plan, City will use available data from the Growth Monitoring Program to
measure the effectiveness of policies established in this plan. The River Road and Santa Clara
Community Organizations will use the results to revise Action Plan priorities over time as work is
completed and new community priorities are identified.
Goal 13: Support an active and accessible River Road corridor.
Policy 13.1 Key Areas for Development: Support more development and redevelopment in key
areas for residential, commercial, and mixed-use development through legislative updates to
local land use regulations.
Policy 13.2 Walkable Neighborhood Centers: Support walkable neighborhood centers where
people can access transit, shopping, parks, schools, and public spaces within walking distance
through legislative updates to local land use regulations.
Goal 14: Promote land use and development that protects and enhances neighborhood
character.
Policy 14.1 Compatibility Transitions: Enhance compatibility through development standards
such as height and scale transitions, setbacks, buffering with trees, and window offsets between
adjacent properties that are zoned differently through legislative updates to local land use
regulations.
Policy 14.2 Neighborhood Livability: Retain and enhance neighborhood livability, such as by
mitigating noise, identifying and encouraging preservation of historical and cultural properties,
and promoting green development and design at pedestrian scale.
Policy 14.3 Willamette River Compatibility: Encourage development that is less intense along
the river by making legislative updates to local land use regulations that include additional
standards to protect, maintain, preserve, and enhance the natural, scenic, historic, and
recreational qualities of the Willamette River Greenway.
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Draft | December 1, 2023
Community
Vision Statement
Community
Goal 15: Foster a welcoming and inclusive community.
Policy 15.1 Welcoming and Inclusive: Promote a welcoming environment and inclusive
approach to the work of the River Road and Santa Clara Community Organizations in
collaboration with the City, County, and other local service providers such as schools and non-
profit organizations.
Policy 15.2 Housing Affordability: Show community support for affordable housing
opportunities in the neighborhoods.
Policy 15.3 The Unhoused Community: Advocate for housing and provide information to
community members about housing services and social services available for people without
stable housing.
Policy 15.4 Public Art: Support public art through public programs and community advocacy.
Goal 16: Foster collaborative relationships to build a stronger and more resilient community.
Policy 16.1 Communication and Outreach: Enhance communication and outreach capabilities of
the River Road and Santa Clara Community Organizations by advocating for stable local funding
to reach the entire neighborhoods.
Policy 16.2 Gathering and Learning Spaces: Enhance access to locations and opportunities for
community gathering, sharing, and learning spaces for all residents in collaboration with
neighborhood schools, businesses, and other community partners.
Policy 16.3 Community Engagement: Build and maintain resident engagement through
neighborhood projects, outreach, empowering neighborhood volunteers, and applying for the
City’s Community and Neighborhood Matching Grants Program.
Policy 16.4 Resilience Networks: Build community support and participation in small scale
resilience networks that help neighbors and businesses communicate, share resources, and
prepare for emergencies.
The River Road and Santa Clara Neighborhoods exude a strong sense of place. They are welcoming
and inclusive neighborhoods for people of all backgrounds. River Road and Santa Clara celebrate and
nurture community unity and diverse cultures and honor the rich history of farming in the
neighborhoods. The community recognizes the value of natural assets, such as the Willamette River
and thriving shared spaces, such as parks, schools, and local businesses. Our neighborhoods are safe,
resilient, and engaged, with strong social networks and reliable public services.
36
Draft | December 1, 2023
Goal 17: Provide comprehensive public services and community resources that address the
evolving needs of the community.
Policy 17.1 Address Present Confusion about Service Providers: Assist River Road and Santa
Clara residents by providing information about current service providers so there is clarity about
which agencies provide services where and how to contact them.
Policy 17.2 Essential Public Services (safety, water, fire): As neighborhoods evolve, strive for
equitable provision of essential public services if amalgamation and/or transition of service
providers is considered.
Policy 17.3 Community Resources: Work to expand parks and recreation services as well as
library and cultural services in the River Road and Santa Clara neighborhoods.
Policy 17.4 Annexation: Annexation of the River Road and Santa Clara areas will occur only
through strict application of state laws and local policies (e.g., ability to extend key urban
facilities and services in a timely manner). In each case, Eugene will make every reasonable
attempt to provide for annexation only on a voluntary basis and according to prior individual
property annexation agreements.
Goal 18: Increase resilience in local food, water, and disaster preparedness systems
necessary for human health and wellbeing.
Policy 18.1 Green Infrastructure: Invest in infrastructure development that is resilient to
disasters, enhances food, water, and energy stability, and preserves ecosystem functions, as
feasible.
Policy 18.2 Food Production and Storage: Promote home and neighborhood food production
and storage through community education, outreach, programs, and legislative updates to local
land use regulations.
Policy 18.3 Renewable Resources and Energy: Promote renewable resources and energy
conservation to decrease reliance on public utility grid through community education, outreach,
and incentives.
Policy 18.4 Neighborhood-wide Emergency Preparedness: Educate and prepare for natural
disasters by increasing access to regular Community Emergency Response Team (CERT) training
and through community volunteer efforts.
Proposed Metro Plan Amendments
Deletions shown in [strikeout]
Additions shown in bold italic
Table of Contents
Chapter Page
Preface ............................................................................................................................................. i
I.Introduction ..................................................................................................................... I-1
Background ....................................................................................................................... I-1
Purpose .............................................................................................................................. I-1
Population Forecast ........................................................................................................... I-2
Planning Functions............................................................................................................ I-2
Use of the Metro Plan ....................................................................................................... I-3
Relationship to Other Plans, Policies, and Reports........................................................... I-5
General Assumptions and Findings .................................................................................. I-6
II.Fundamental Principles and Growth Management Policy Framework .............. II-A-1
A.Fundamental Principles ................................................................................... II-A-1
B. Metropolitan Goals ..........................................................................................II-B-1
C. Growth Management Goals, Findings, and Policies ........................................II-C-1
D.Jurisdictional Responsibility ........................................................................... II-D-1
E.Urban and Urbanizable Land ........................................................................... II-E-1
[F. River Road and Santa Clara Goals, Findings, and Policies ............................ II-F-1]
G.Metro Plan Diagram ....................................................................................... II-G-1
III.Specific Elements ..................................................................................................... III-A-1
A.Residential Land Use and Housing Element ................................................. III-A-1
B.Economic Element ......................................................................................... III-B-1
C.Environmental Resources Element ................................................................ III-C-1
D.Willamette River Greenway, River Corridors, and Waterways Element ...... III-D-1
E.Environmental Design Element ..................................................................... III-E-1
F.Transportation Element ................................................................................... III-F-1
G.Public Facilities and Services Element .......................................................... III-G-1
H.Parks and Recreation Facilities Element ........................................................ III-H-1
I.Historic Preservation Element .........................................................................III-I-1
J.Energy Element ............................................................................................... III-J-1
K.Citizen Involvement Element ........................................................................ III-K-1
IV.Metro Plan Review, Amendment, and Refinement ................................................... IV-1
V.Glossary ......................................................................................................................... V-1
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II-A-1
Chapter II
Fundamental Principles and
Growth Management Policy Framework
This chapter contains Fundamental Principles that reflect the overall themes of the Metro Plan.
The chapter also contains: Metropolitan Goals; Growth Management Goals, Findings, and
Policies; Eugene and Springfield Jurisdictional Responsibility; Urban and Urbanizable Land;
[River Road and Santa Clara Goals, Findings and Policies;] and Metro Plan Diagram.
II-F-1
[F. River Road and Santa Clara Goals, Findings, Objectives, and
Policies
The River Road and Santa Clara portions of the Eugene-Springfield metropolitan area are
important components of the metropolitan community. Both River Road and Santa Clara have:
• Unique and distinctive neighborhood identities
• Experienced considerable private investment in the past years
• Experienced considerable public investments; e.g., transmission facilities by the
Eugene Water & Electric Board (EWEB) and educational facilities by public school
systems
• A sound housing stock
In Santa Clara, relatively large parcels of vacant land exist which, with adequate urban services,
can be developed at increased densities; in River Road, relatively large developed lots exist
which could be further developed by their owners.
The future of both the River Road and Santa Clara areas will play a critical role in the growth of
the metropolitan area. For some years, officials of Lane County and Eugene have cooperatively
discussed methods of delivering services to these neighborhoods.
These discussions have continually focused on two sides of a single, critical issue:
How can the short-range costs and benefits to the residents and other service providers be
balanced against, and what are the long-range costs and benefits to the residents and the
entire metropolitan area of logical growth and increased densities?
Inflation has drastically increased the need to balance these two potentially divergent objectives.
The effects of continued inflation can be mitigated by identifying and implementing a solution to
the servicing issue.
A unique set of circumstances has occurred which lends direction to resolution of the service
delivery questions for both River Road and Santa Clara.
1. As part of the acknowledgement process for the Metro Plan, the Land Conservation and
Development Commission (LCDC) directed that a servicing plan be developed for both
River Road and Santa Clara and that Eugene provide those services.
2. Discussions between Eugene officials and state and county representatives of the River
Road and Santa Clara area have led to reconsideration of Eugene’s policy to provide
services to these neighborhoods only after annexation to the City of Eugene of both areas
has occurred.
3. Preliminary review of Eugene’s comprehensive capital improvement program suggested
a full range of services could not be provided immediately even if the areas were annexed
at one time
II-F-2
Based on these three conditions, a situation evolved which led to a set of findings, objectives,
and policies for inclusion in the Metro Plan and ultimately will lead to delivery of urban services
to the River Road and Santa Clara areas in cooperation with the residents of these
neighborhoods. That situation is as follows.
The City of Eugene constructed and owns the main wastewater system that serves the River
Road and Santa Clara neighborhoods. Eugene has altered its policies pertaining to the service
delivery to both River Road and Santa Clara to allow incremental annexation. Annexation must,
however, be consistent with state law and other applicable local policies (e.g., the ability of the
city to deliver key urban facilities and services in a timely manner). Eugene will pursue
annexation only in accordance with applicable state laws and will not use these mechanisms to
circumvent the process. In every case, Eugene will make every reasonable attempt to provide for
annexation only on a voluntary basis and in accord with previous individual property annexation
agreements. The City, in conjunction with Lane County and the citizens of both River Road and
Santa Clara, developed a River Road-Santa Clara Urban Facilities Plan which is responsive to
the basic service infrastructure which is either in place or contemplated for these areas. An
integral part of the implementation phase of the River Road-Santa Clara Urban Facilities Plan is
a financing mechanism which takes into account the financial abilities of residents/property
owners and the City of Eugene to pay for service delivery in that area.
The following findings, objectives, and policies reflect the situation that evolved.
Findings, Objectives, and Policies
Findings
1. Land supply in the River Road and Santa Clara areas is of metropolitan-wide
significance.
2. In order to achieve urban densities, urban services, including public wastewater service,
must be provided.
3. For a long period of time, officials of Lane County and Eugene have made great efforts to
resolve the service delivery problems for both River Road and Santa Clara.
4. The history and pattern of development in River Road and Santa Clara have resulted in
the creation of two unique metropolitan neighborhoods.
5. The most cost-effective method of service delivery is through annexation.
6. An urban facilities plan is the best method of providing a framework for capital
improvements programming in the River Road and Santa Clara areas.
7. Because of the substantial public investments already made in both neighborhoods, it is
most cost-efficient to achieve urban densities in River Road and Santa Clara prior to
II-F-3
accommodating new development needs in totally undeveloped areas.
8. The 1970 CH2M Hill Sewerage System Study, River Road-Santa Clara publication
demonstrates the feasibility of providing wastewater service to the River Road and Santa
Clara area in a manner consistent with the Eugene-Springfield Metropolitan Waste
Treatment Alternatives Report (208 Facilities Plan) and the Metro Plan.
9. The CH2M Hill publication defined study boundaries and made population projections
which are different than those contained in the Metro Plan; modifications to these factors
is occurring as part of the required system design work prior to construction.
10. The detailed design work which will occur as part of development of the system will
allow discussion of various system concepts with the residents and property owners of
the River Road and Santa Clara areas.
11. The River Road-Santa Clara Urban Facilities Plan has been completed.
12. Based on the River Road/Santa Clara Groundwater Study, Final Technical Report,
February, 1980 by Sweet, Edwards, and Associates, Inc., the Oregon Environmental
Quality Commission (EQC) found on April 18, 1980, that:
a. The River Road-Santa Clara shallow aquifer is generally contaminated with fecal
coliform organisms in excess of drinking water and body contact standards.
b. Existing nitrate-nitrogen concentrations within the area exceed the planning target
on the average.
c. About 73 percent of the nitrate-nitrogen pollutants (and, by analogy, a similar
share of the fecal coliform contaminations) result from septic tank effluent.
Septic tank pollutants can migrate rapidly to the groundwater from drainfields via
macropore travel.
13. The EQC concluded that a public health hazard exists based on fecal coliform data for
people using the aquifer for domestic (drinking) or irrigation and that a health hazard
similarly exists in several areas based on nitrate-nitrogen levels.
14. To remedy the groundwater pollution problem, the Environmental Protection Agency
(EPA) awarded Eugene a grant to build a wastewater system to replace the individual
septic systems in use throughout River Road and Santa Clara according to a prescribed
time frame.
15. Efforts toward incremental and voluntary annexation of River Road and Santa Clara
properties to Eugene and connection to the wastewater system according to the EPA’s
time frame have not been successful.
II-F-4
Objectives
1. Ensure the availability of land in River Road and Santa Clara for urban levels of
development.
2. Capitalize on existing public expectations by providing further public services which will
allow the River Road and Santa Clara areas to achieve urban densities.
3. Deliver a full range of urban services to the River Road and Santa Clara areas through
annexation.
4. Consider the unique situation of the residents of River Road and Santa Clara by providing
financing mechanisms which will take into account the financial ability of the residents to
pay for service delivery and the City of Eugene’s ability to provide these services.
5. Guide capital improvements in the River Road and Santa Clara areas through the River
Road-Santa Clara Urban Facilities plan developed cooperatively by Lane County, the
City of Eugene, and the residents and property owners of the two areas.
6. Eliminate groundwater pollution from individual septic tank disposal systems in River
Road and Santa Clara.
Policies
1. Eugene shall develop methods of financing improvements in the River Road and Santa
Clara areas which are responsive to the unique situation of residents and property owners,
as well as the City of Eugene.
2. Eugene will plan, design, construct, and maintain ownership of the entire wastewater
system that services the River Road and Santa Clara areas. This will involve
extraterritorial extension which will be supported by Lane County before the Lane
County Local Government Boundary Commission and all other applicable bodies.
3. Annexation of the River Road and Santa Clara areas will occur only through strict
application of state laws and local policies (e.g., ability to extend key urban facilities and
services in a timely manner). In each case, Eugene will make every reasonable attempt to
provide for annexation only on a voluntary basis and according to prior individual
property annexation agreements.
4. The City of Eugene shall provide urban services to the River Road and Santa Clara
neighborhoods upon annexation. In the meantime, to reduce the groundwater pollution
problem, Eugene will extend wastewater service to developed properties.
II-F-5
5. Using the CH2M Hill report as a foundation, efforts to prepare more detailed engineering
studies which will provide the basis for a capital improvement program to sewer the
River Road and Santa Clara areas in a manner consistent with the above policy direction
shall proceed.
6. No particular section of the Metro Plan shall be interpreted as prohibiting the process of
incorporation of a new city in River Road and Santa Clara in accordance with ORS 199
and 221. This means that:
a. As a comprehensive planning document, no particular section of the Metro Plan
shall be used in isolation to evaluate different courses of action.
b. The phrase “process of incorporation” refers to the specific steps of incorporation
outlined in ORS 199 and 221.
c. This policy does not negate the requirement of public wastewater service as a
minimum level of key urban facilities and services. Any institutional solution to
providing urban services in the River Road and Santa Clara areas must provide
public wastewater service to address LCDC requirements and to protect public
health and safety in resolving groundwater pollution problems. Public wastewater
service is also required to achieve higher than septic tank level of urban
residential densities and to utilize efficiently valuable metropolitan-scale
buildable land.
METRO PLAN APPENDIX B
REFINEMENT PLANS, FUNCTIONAL PLANS,
AND OTHER PLANNING DOCUMENTS
RIVER ROAD-SANTA CLARA NEIGHBORHOOD PLAN
Date: XXX 2024
Adopted by: Eugene City Council
Lane County Board of Commissioners
Adopting Resolution #xxxx
Adoption Date XXX XX, 2024
1
Findings in Support of the Adoption of the
River Road-Santa Clara Neighborhood Plan
Metro Plan Amendments
City of Eugene and Lane County
(City File MA 23-5 and County File: 509-PA23-05532)
Overview
The City of Eugene and Lane County, in collaboration with the River Road and Santa Clara Community
Organizations and neighborhood volunteers, have been working together on an updated neighborhood
plan that creates a vision for growth and development in a manner that respects the River Road-Santa
Clara area’s unique characteristics and opportunities.
The purpose of the amendments to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan
Amendments)is to adopt an updated neighborhood plan that:
•provides policy direction for City and County decision-makers as they consider future legislative
actions
•guides City and County staff in:
o formulating proposed changes to local land use regulations and other regulatory
documents
o developing other work programs and long-range planning projects
o preparing budgets and capital improvement programs
•calls for collaboration as well as continued or additional efforts from the River Road and Santa
Clara Community Organizations and other community partners
Metro Plan Amendments
The proposal involves a Type II Metro Plan Amendment pursuant to EC 9.7705(2)(b) to:
•adopt the new River Road- Santa Clara Neighborhood Plan as a refinement of the Eugene-
Springfield Metropolitan Area General Plan (Metro Plan);
•remove Chapter II Section F from the Metro Plan as well as references to the section in the Table
of Contents and Chapter II Introduction of the Metro Plan;
•Amend Appendix B to the Metro Plan to add a reference to the new River Road- Santa Clara
Neighborhood Plan.
The proposed River Road-Santa Clara Neighborhood Plan (Neighborhood Plan) creates a vision for
growth and development in a manner that respects the area’s unique characteristics and opportunities
and includes vision statements, goals, and policies that reflect community values, aspirations, and
priorities expressed during outreach. The Neighborhood Plan provides policy direction for City and
County decision-makers as they consider future legislative actions, and guides City and County staff in
formulating proposed changes to local land use regulations and other regulatory documents, developing
other work programs and long-range planning projects, and preparing budgets and capital improvement
programs. The Neighborhood Plan also calls for collaboration and continued or additional efforts and
advocacy from the River Road and Santa Clara Community Organizations and other community partners.
In addition to the Neighborhood Plan, a non-regulatory Action Plan was developed with input from the
community; however, the Action Plan is not a land use plan, is not regulatory in nature, and will not be
Attachment C Exhibit A
2
adopted by either the Eugene City Council or the Lane County Board of Commissioners. As such, these
findings need not and do not address compliance of the Action Plan with land use approval criteria.
In 1980, the Oregon Environmental Quality Commission (EQC) concluded that a public health hazard
existed for people using the River-Road Santa Clara aquifer, resulting from ground water contamination
from individual septic tank disposal systems. As part of the acknowledgment process for the 1982 Metro
Plan, the Oregon Land Conservation and Development Commission provided direction that an urban
services plan be developed for both River Road and Santa Clara and that City of Eugene provide those
services. This direction was memorialized in the text of the 1982 Metro Plan. After the 1987 River Road-
Santa Clara Urban Facilities Plan was adopted, the River Road-Santa Clara specific text in the Metro Plan
was revised in 1987 to reflect adoption of the Urban Facilities Plan, and moved into Chapter II Section F
of the Metro Plan, “River Road and Santa Clara Goals, Findings, Objectives, and Policies,” with the
intention that the policies would lead to the delivery of urban services to the River Road and Santa Clara
areas, most specifically wastewater service. The 1987 Urban Facilities Plan policies address the
extension of wastewater service to the River Road-Santa Clara area in order to address the groundwater
pollution problem. Policies were also added to Chapter II Section F of the Metro Plan that addressed
extension of wastewater service to the area.. Since the 1987 Urban Facilities Plan and the Chapter II
Section F Metro Plan policies were adopted, additional planning tools have been made available for
planning for wastewater and other urban services; for example, Eugene’s Wastewater Master Plan, the
City’s Capital Improvement Program, and the regional Public Facilities and Services Plan. Consistent with
the policy direction contained in the 1987 Urban Facilities Plan and Chapter II Section F of the Metro
Plan, wastewater has been extended throughout the River Road-Santa Clara area. As a result, the
properties in the River Road and Santa Clara basins are fully served with wastewater service, with the
exception of the eastern fringe, and some limited in-fill. For these reasons, the policies in Chapter II
Section F from the Metro Plan are no longer necessary and are proposed for removal.
Additionally, a set of proposed amendments to the City of Eugene’s Land Use Code which would apply
within portions of the River Road and Santa Clara areas that are within the city limits are also included in
the proposed adoption package. The Code Amendments only apply within the City of Eugene and
therefore will only be adopted by the City of Eugene. The proposed code amendments are not
addressed in these findings. The Eugene City Council will adopt a separate ordinance and a separate set
of findings in order to approve the proposed code amendments. These findings only address the Metro
Plan Amendments that must be adopted by both the Eugene City Council and the Lane County Board of
Commissioners.
Metro Plan Amendment Criteria
City of Eugene Criteria
EC 9.7735 Metro Plan Amendments – Criteria for Approval.
(1) The proposed amendment is consistent with the relevant Statewide Planning Goals; and
(2) The proposed amendment does not make the Metro Plan internally inconsistent; and
(3) When the city-specific local comprehensive plan also applies, the proposed amendment is
consistent with the city-specific local comprehensive plan.
3
Lane County Criteria
LC 12.300.030 Metro Plan Amendment Criteria
The following criteria will be applied by the Board of Commissioners and other applicable governing
body or bodies in approving or denying a Metro Plan amendment application:
A. The proposed amendment is consistent with the relevant Statewide Planning Goals; and
B. The proposed amendment does not make the Metro Plan internally inconsistent.
Consistency with Statewide Planning Goals
City of Eugene Criteria
EC 9.7735 Metro Plan Amendments – Criteria for Approval.
(1) The proposed amendment is consistent with the relevant Statewide Planning Goals
Lane County Criteria
LC 12.300.030 Metro Plan Amendment Criteria
A. The proposed amendment is consistent with the relevant Statewide Planning Goals
Statewide Planning Goal 1 – Citizen Involvement. To develop a citizen involvement program that
insures the opportunity for citizens to be involved in all phases of the planning process.
The City’s and County’s acknowledged procedures for adoption of legislative land use decisions, located
in sections 9.7700 through 9.7735 (Metro Plan Amendment Procedures) of the Eugene Code, 1971, and
sections 12.300.005 through 12.300.035 (Eugene-Springfield Metropolitan Area General Plan Element)
of the Lane County Code, ensure the opportunity for community members to be involved in all phases of
the legislative land use decision process and set out the requirements for such involvement.
These Metro Plan amendments do not amend or affect either jurisdiction’s state acknowledged citizen
involvement program. As addressed below, the process for adopting these Metro Plan amendments
complies with Goal 1 because it is consistent with the citizen involvement provisions cited above.
The City’s citizen involvement program is adopted into the Eugene Code. The County’s citizen
involvement program is adopted into the county regulations applicable to the Eugene urban transition
area (the area outside the city limits but within the urban growth boundary) and the Lane Code. Both
the City and County regulations include a formal land use review procedure with public notification,
meetings, and hearings. The public engagement actions for the neighborhood planning work were
completed consistently with the City’s and County’s acknowledged citizen involvement programs and
went beyond the requirements of those programs to ensure that citizens had opportunities to be
involved in the process.
This package of Metro Plan amendments has been the subject of extensive public involvement over the
course of several years. The document titled River Road-Santa Clara Neighborhood Plan Engagement
Summary attached to these Findings as Appendix 1 and hereby adopted as additional findings of
compliance with Goal 1, summarizes the public engagement efforts used to educate the public and
4
obtain feedback on the River Road-Santa Clara Neighborhood Plan throughout each phase of the
planning process.
A final round of community engagement took place during the adoption phase, leading up to the pre-
adoption notice provided to the Department of Land Conservation and Development. In March 2023,
the Neighborhood Plan’s Community Advisory Committee approved bringing the draft Neighborhood
Plan, a non-regulatory Action Plan, and neighborhood-specific code amendments out for community
feedback, kicking-off the broader engagement process for the adoption phase. Updated drafts of the
Neighborhood Plan, Action Plan, and the neighborhood-specific code amendments were published to
the project website and the project’s Engage Eugene site, part of the City of Eugene’s online
engagement platform.
Project staff distributed information about the neighborhood planning process and the adoption process
through a variety of digital media, including the project website, Engage Eugene webpage, social media,
and e-newsletters from the City Planning Division and both community organizations. Project staff also
developed summary documents and graphics that were made available online and at in-person events.
In early May 2023, project staff mailed a postcard to all property owners and residents of the River Road
and Santa Clara neighborhoods, approximately 16,800 people. The postcard featured ways to engage
during the adoption phase, including virtual information sessions, an in-person community event, a
meeting toolkit, and an online feedback form.
A joint public hearing on the proposed River Road-Santa Clara Neighborhood Plan was held by the
Eugene and Lane County Planning Commissions on October 17, 2023. Consistent with City and County
code requirements, the Planning Commissions’ joint public hearing on the proposal was duly noticed to
all neighborhood organizations in Eugene as well as community groups and individuals who requested
notice. Notices were provided at the following times:
September 12, 2023: The City’s proposed River Road-Santa Clara neighborhood-
specific code amendments, the City and County’s proposed
Metro Plan amendments, and notice of the Joint Planning
Commission public hearing on the amendments were filed with
the Oregon Department of Land Conservation and
Development.
September 15, 2023: Notice of the Joint Planning Commission public hearing on the
proposed amendments was mailed to the parties listed in
section 9.7520(2) of the Eugene Code and to the individuals and
entities on the City’s interested parties list.
September 22, 2023: Notice of the Joint Planning Commission public hearing was
published in the Register Guard Newspaper.
October 17, 2023: The Eugene and Lane County Planning Commissions held a joint
public hearing on the proposed Metro Plan Amendments and
the Eugene Planning Commission held a public hearing on the
proposed Land Use Code Amendments.
5
In addition, information concerning the River Road-Santa Clara Neighborhood Plan, including the dates
of the public hearings and instructions on how to submit testimony, was posted on the City of Eugene
website and project updates were provided via email to the Planning Division e-newsletter that is sent
to over 17,000 subscribers, as well as to the River Road-Santa Clara Neighborhood Plan interested
parties list.
*Placeholder for information about the process before the governing bodies*
These processes afforded ample opportunity for citizen involvement; therefore, the Metro Plan
amendments are consistent with Statewide Planning Goal 1.
Statewide Planning Goal 2 – Land Use Planning. To establish a land use planning process and policy
framework as a basis for all decision and actions related to use of land and to assure an adequate
factual base for such decisions and actions.
Guiding land use processes and a policy framework for the lands within the Eugene city limits exist
within the Metro Plan, the Envision Eugene Comprehensive Plan, adopted Refinement Plans, and
Chapter 9 of the Eugene Code. Guiding land use processes and a policy framework for lands outside the
city limits but within the Metro Plan boundary exist within the Metro Plan and Chapter 12 of the Lane
Code.
The Eugene and Lane County codes specify the procedures and criteria that were used in considering
these Metro Plan amendments. These findings and the record for this land use decision show that there
is an adequate factual base for the amendments. The River Road and Santa Clara Community
Organizations, City of Eugene and Lane County staff, consultants and neighborhood volunteers have
worked together since fall 2017 to create a neighborhood plan with a vision for growth and
development in a manner that respects the area’s unique characteristics and opportunities, which will
guide decision-making in River Road and Santa Clara for decades to come. The Neighborhood Plan
reflects the community values, aspirations, and priorities expressed during outreach.
The Goal 2 coordination requirement is met when the City of Eugene and Lane County engage in an
exchange, or invite an exchange, between the City, County and any affected governmental unit and
when the City and County use the information obtained in the exchange to balance the needs of their
constituents. In addition to the City and County’s collaboration on these amendments, the City and
County engaged in an exchange about the subject of these amendments with affected local government
units. Specifically, the City and County provided notice of the proposed action and opportunity to
comment to the Oregon Department of Land Conservation and Development, the City of Springfield,
and special districts including the River Road Water District, River Road Parks and Recreation District,
Santa Clara Water District, Junction City Water Control District, Santa Clara Rural Fire Protection District,
Lane Fire Authority, and Lane Transit District. There are no exceptions to Statewide Planning Goal 2
required for these amendments. Therefore, the amendments are consistent with Statewide Planning
Goal 2.
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Statewide Planning Goal 3 – Agricultural Lands. To preserve agricultural lands.
The Metro Plan amendments do not change the zoning or plan designation for any lands designated by
the comprehensive plan for agricultural use. To the extent that there are properties within the
Neighborhood Plan Area that are currently designated and/or zoned for agricultural use, the Metro Plan
amendments do not change the zoning or designation of those properties or force a discontinuance of
agricultural practices. For these reasons, the amendments are consistent with Statewide Planning Goal
3.
Additionally, the Metro Plan amendments are consistent with Statewide Planning Goal 3 because the
Neighborhood Plan includes goals and policies intended to preserve agricultural lands and practices,
including: Goal 10, “Preserve agricultural land and open spaces within the Neighborhood Plan
boundary;” and Policy 10.1 provides “Agricultural Land Preservation Outside the Eugene Urban Growth
Boundary (UGB): Preserve high value farmland (Class 1 and Class 2 soils) outside the UGB for farm use,
where feasible or as the state allows.”
Statewide Planning Goal 4 – Forest Lands. To conserve forest lands.
The amendments do not affect any lands designated by the comprehensive plan for forest use. The
amendments are therefore consistent with Statewide Planning Goal 4.
Statewide Planning Goal 5 - Open Spaces, Scenic and Historic Areas, and Natural Resources. To
conserve open space and protect natural and scenic resources.
OAR 660-023-0250(3) provides: Local governments are not required to apply Goal 5 in consideration of a
PAPA [Post Acknowledgement Plan Amendment] unless the PAPA affects a Goal 5 resource. For purposes
of this section, a PAPA would affect a Goal 5 resource only if:
(a) The PAPA creates or amends a resource list or a portion of an acknowledged plan or land use
regulation adopted in order to protect a significant Goal 5 resource or to address specific
requirements of Goal 5;
(b) The PAPA allows new uses that could be conflicting uses with a particular significant Goal 5
resource site on an acknowledged resource list; or
(c) The PAPA amends an acknowledged UGB and factual information is submitted demonstrating
that a resource site, or the impact areas of such a site, is included in the amended UGB area.
These Metro Plan amendments do not create or amend the City’s or County’s list of Goal 5 resources, do
not amend a code provision adopted to protect a significant Goal 5 resource or to address specific
requirements of Goal 5, do not allow new uses that could be conflicting uses with a significant Goal 5
resource site, and do not amend the acknowledged urban growth boundary. For these reasons, the
amendments are consistent with Statewide Planning Goal 5.
Additionally, the Metro Plan amendments are consistent with Statewide Planning Goal 5 because the
Neighborhood Plan includes goals and policies that are intended to conserve open space and protect
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natural and historic resources, including: Goal 7, “Maintain and create natural areas which are healthy,
thriving spaces that provide habitat for native species and function as natural infrastructure;” and Policy
7.4 “Public Natural Areas: Create new and enhance existing natural areas, including within the
Willamette River Greenway, that are accessible to all residents.”
Statewide Planning Goal 6 - Air, Water and Land Resources Quality. To maintain and improve the
quality of the air, water and land resources of the state.
Goal 6 addresses waste and process discharges from development, and is aimed at protecting air, water
and land from impacts from those discharges. The Metro Plan amendments will remove Chapter II
Section F from the Metro Plan, which to a large extent focuses on sanitary sewer service in the River
Road Santa Clara area.
In the 1980’s, after a groundwater pollution problem became apparent in the River Road Santa Clara
area, the City accepted responsibility for providing sewer service to River Road and Santa Clara to
address the health hazard and remedy the situation. The policies in Chapter II Section F of the Metro
Plan focus on the provision of a wastewater system and implementation of the River Road-Santa Clara
Urban Facilities Plan (1987). The implementation piece of the Urban Facilities Plan related to providing
sewers to the River Road-Santa Clara area has been executed and removing Chapter II Section F from
the Metro Plan will have no impact on the provision of wastewater service and will not negatively affect
the quality of the water resources of the state.
The City of Eugene’s 2020 Wastewater Master Plan states that, “With the exception of the eastern
fringe, and some limited in-fill, the properties in the River Road and Santa Clara basins are fully served.”
The Wastewater Master Plan also notes that much of the wastewater lines in the River Road and Santa
Clara basins have been built since the 1980’s and 1990’s, “The River Road basin includes nine sub-basins,
all south of the Beltline Highway between the Willamette River and Northwest Expressway. With the
exception of the West Bank interceptor built in 1951, the 48 miles of wastewater lines in this basin were
built since 1971. Of those 48 miles, 37 miles were built since 1990. The Santa Clara basin includes 10
sub-basins, all north of Beltline and east of Northwest Expressway. The majority of the 82-mile system
has been built since 1980.”
These Metro Plan amendments do not affect other existing regulations or adopted plan provisions for
protection of air, water, and land resources. Therefore, the amendments are consistent with Statewide
Planning Goal 6.
Statewide Planning Goal 7 - Areas Subject to Natural Disasters and Hazards. To protect life and
property from natural disasters and hazards.
Goal 7 requires that local government planning programs include provisions to protect people and
property from natural hazards such as floods, landslides, wildfires and earthquakes and related hazards.
The City and County protect people and property from natural hazards through various land use and
building code requirements. The Metro Plan amendments do not make changes to adopted policies or
regulations that protect people and property from natural hazards.
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Based on these findings, the amendments are consistent with Statewide Planning Goal 7.
Statewide Planning Goal 8 - Recreational Needs. To satisfy the recreational needs of the citizens of the
state and visitors, and where appropriate, to provide for the siting of necessary recreational facilities
including destination resorts.
Goal 8 ensures that recreational facilities are provided to Oregon residents and is primarily concerned
with the provision of recreational facilities in non-urban areas of the state. These amendments do not
affect the City’s or County’s provisions for, or access to, recreation areas, facilities, or recreational
opportunities. Therefore, the amendments are consistent with Statewide Planning Goal 8.
Additionally, the amendments are consistent with Statewide Planning Goal 8 because the Neighborhood
Plan contains goals and policies related to providing parks access, connectivity, promoting recreational
uses along the river, and expanding parks and recreation services. For example, the Neighborhood Plan’s
Goal 8 states, “Provide neighborhood access to recreational opportunities, parks, and community
centers.” Goal 8 is supported by multiple policies, including Policy 8.3, “Recreational Opportunities and
Community Centers: Enhance equitable access to recreational opportunities and well-maintained
community centers.”
Statewide Planning Goal 9 - Economic Development. To provide adequate opportunities throughout
the state for a variety of economic activities vital to the health, welfare, and prosperity of Oregon’s
citizens.
Goal 9 requires local governments to evaluate the supply and demand of commercial land relative to
community economic objectives. Goal 9 and Chapter 660, division 009 of the Oregon Administrative
Rules, which implements the requirements of Goal 9, require the City and County to provide, within the
UGB, through their adopted comprehensive plans, at least an adequate supply of sites of suitable sizes,
types, locations, and service levels for a variety of industrial and commercial uses. This need was
addressed when the City and County adopted a Eugene-specific UGB in 2017, which included an
expansion for industrial land. The Envision Eugene Employment Land Supply Study includes an
acknowledged inventory of land for economic growth and activity in Eugene’s UGB. That inventory is
expected to address the City’s needs for such land through 2032. Chapter 660, division 009 of the
Oregon Administrative Rules does not require or restrict planning for industrial and other employment
uses outside urban growth boundaries. The City’s and County’s policies pertaining to employment are
housed in their relevant comprehensive plans. These amendments will not rezone or redesignate any
properties and do not impact the supply of industrial or commercial lands. Therefore, the amendments
are consistent with Statewide Planning Goal 9.
Additionally, the amendments are consistent with Statewide Planning Goal 9 because the Neighborhood
Plan contains vision, goals, and policies related to economic development. Economic development is
one of five topic areas included in the Neighborhood Plan. The Plan’s goals aim to encourage the growth
and creation of local businesses, promote redevelopment and mixed-use buildings, and create
employment opportunities that offer a living wage.
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Statewide Planning Goal 10 – Housing. To provide for the housing needs of citizens of the state.
Goal 10 requires local governments to provide an adequate supply of buildable land within the UGB to
accommodate their city’s estimated housing needs for a 20-year planning period. When the City and
County approved Eugene’s UGB in 2017, they adopted, and received State acknowledgement of a 20-
year inventory of buildable lands for residential use. The Envision Eugene Residential Land Supply Study
(2012-2032) was adopted in 2017 as a refinement of the Envision Eugene Comprehensive Plan and
complies with the requirements of Goal 10 and Chapter 660, Division 008 of the Oregon Administrative
Rules.
The Envision Eugene Residential Land Supply Study includes an inventory of buildable lands for
residential use. According to the Residential Land Supply Study, there is sufficient buildable residential
land within Eugene’s acknowledged urban growth boundary to meet the identified land need. These
amendments do not impact the supply of residential buildable land within Eugene’s UGB. No land is
being re-designated from a residential use to a non-residential use, and the amendments do not
otherwise diminish the amount of land available for residential use.
Goal 10 also requires local governments to conduct a Housing Needs Analysis (HNA) to assess whether
their estimated housing needs for a 20-year planning period can be satisfied within the UGB. The
Envision Eugene Residential Land Supply Study (2017) includes an HNA. These amendments do not
impact the supply of residential buildable lands or affect the estimated housing needs within Eugene’s
UGB. Therefore, the amendments are consistent with Statewide Planning Goal 10.
Additionally, the amendments are consistent with Statewide Planning Goal 10 because the
Neighborhood Plan contains goals and policies related to housing needs. For example, Goal 12 of the
Neighborhood Plan reads, “Plan for future housing that addresses the needs of the community.” Policies
also highlight planning for affordable housing and pursuing innovative housing strategies.
Statewide Planning Goal 11 – Public Facilities and Services. To plan and develop a timely, orderly and
efficient arrangement of public facilities and services to serve as a framework for urban and rural
development.
Goal 11 requires that urban development be supported by urban facilities and services. Goal 11 and ORS
197.712 require a public facilities plan for water, sewer and transportation services within Eugene’s
UGB. The Land Conservation and Development Commission has acknowledged the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan (PFSP) as the public facilities plan for wastewater,
water and stormwater facilities within Eugene’s UGB. The PFSP is a refinement plan of the Metro Plan,
adopted by Lane County, the City of Eugene, and the City of Springfield. The Eugene 2035 Transportation
System Plan is the transportation element of Eugene’s comprehensive land use plan, applies within
Eugene’s UGB, and was designed to support the Envision Eugene project, the community’s evolving plan
for how Eugene will grow for the next 20 years. Transportation planning is addressed under Goal 12,
below.
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These Metro Plan amendments do not affect the planning or development of future public facilities or
services. The amendments do not make changes to the provision of public facilities and services within
Eugene’s UGB or to the currently adopted Eugene/Springfield Public Facilities and Services Plan (PFSP).
Consistent with the PFSP, the City will continue to plan and develop public facilities to support the land
uses designated in the City’s acknowledged comprehensive plan, for lands located within Eugene’s UGB.
The amendments are consistent with Statewide Planning Goal 11.
The City of Eugene updated the PFSP during the adoption of Eugene Urban Growth Boundary in 2017 to
ensure that all lands within the UGB could be served.
These Metro Plan amendments will remove Chapter II Section F from the Metro Plan, which to a large
extent focuses on the provision of sanitary sewer service in the River Road Santa Clara area. In the
1980’s, after a groundwater pollution problem became apparent in the area, the City accepted
responsibility for providing sewer service to River Road and Santa Clara to address the health hazard and
remedy the situation. The implementation of the River Road-Santa Clara Urban Facilities Plan (1987)
related to providing sewers to the River Road-Santa Clara area has been executed and removing the
related policies in Chapter II Section F of the Metro Plan will have no impact on the provision of
wastewater service to the area or on the current PFSP (which was adopted in 2001, subsequent to the
groundwater pollution problems and the Urban Facilities Plan).
The City of Eugene’s 2020 Wastewater Master Plan states that, “With the exception of the eastern
fringe, and some limited in-fill, the properties in the River Road and Santa Clara basins are fully served.”
The Wastewater Master Plan also notes that much of the wastewater lines in the River Road and Santa
Clara basins have been built since the 1980’s and 1990’s, “The River Road basin includes nine sub-basins,
all south of the Beltline Highway between the Willamette River and Northwest Expressway. With the
exception of the West Bank interceptor built in 1951, the 48 miles of wastewater lines in this basin were
built since 1971. Of those 48 miles, 37 miles were built since 1990. The Santa Clara basin includes 10
sub-basins, all north of Beltline and east of Northwest Expressway. The majority of the 82-mile system
has been built since 1980.”
The implementation piece of the Urban Facilities Plan related to providing sewers to the River Road-
Santa Clara area has been executed and removing Chapter II Section F from the Metro Plan will have no
impact on the provision of public services and facilities or the current PFSP.. Based on these findings,
these amendments are consistent with Statewide Planning Goal 11.
Statewide Planning Goal 12 – Transportation. To provide and encourage a safe, convenient and
economic transportation system.
The Transportation Planning Rule (OAR 660-012-0060) contains the following requirement:
(1) If an amendment to a functional plan, an acknowledged comprehensive plan, or a land use
regulation (including a zoning map) would significantly affect an existing or planned
transportation facility, then the local government must put in place measures as provided in
section (2) of this rule, unless the amendment is allowed under section (3), (9) or (10) of this rule.
A plan or land use regulation amendment significantly affects a transportation facility if it would:
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(a) Change the functional classification of an existing or planned transportation facility
(exclusive of correction of map errors in an adopted plan);
(b) Change standards implementing a functional classification system; or
(c) Result in any of the effects listed in paragraphs (A) through (C) of this subsection based
on projected conditions measured at the end of the planning period identified in the
adopted TSP. As part of evaluating projected conditions, the amount of traffic projected
to be generated within the area of the amendment may be reduced if the amendment
includes an enforceable, ongoing requirement that would demonstrably limit traffic
generation, including, but not limited to, transportation demand management. This
reduction may diminish or completely eliminate the significant effect of the amendment.
(A) Types or levels of travel or access that are inconsistent with the functional
classification of an existing or planned transportation facility;
(B) Degrade the performance of an existing or planned transportation facility such
that it would not meet the performance standards identified in the TSP or
comprehensive plan; or
(C) Degrade the performance of an existing or planned transportation facility that is
otherwise projected to not meet the performance standards identified in the TSP
or comprehensive plan.
The State’s Transportation Planning Rule requires that land use changes that would significantly affect a
transportation facility provide mitigation measures to address the anticipated impacts. The Metro Plan
amendments will not significantly affect a planned or existing transportation facility, and no changes to
existing, adopted land use designations or zoning of properties are proposed. The amendments will not
change the functional classification of an existing or planned transportation facility, nor will they change
any standards implementing a functional classification system. Further, because the Metro Plan
amendments do not alter or affect allowed land uses, the amendments will not result in levels of travel
or access which are inconsistent with the functional classification of an existing or planned
transportation facility or degrade the performance standards of an existing or planned transportation
facility so that it will not meet the performance standards identified in the Eugene 2035 Transportation
System Plan, or Lane County Transportation System Plan, the City’s and County’s respective adopted
transportation system plans. Therefore, the Metro Plan amendments are consistent with Statewide
Planning Goal 12.
Additionally, the amendments are consistent with Statewide Planning Goal 12 because the
Neighborhood Plan includes vision, goals, and policies related to transportation. Transportation is one of
five topic areas that the Neighborhood Plan focuses on. The Plan’s goals aim to implement a
transportation system that is safe for all users, is efficient, equitable, and affordable as well as future
oriented and environmentally responsible.
Statewide Planning Goal 13 – Energy Conservation. To conserve energy.
Goal 13 provides guidance on the management of land and land uses to maximize the conservation of
energy. Consistent with the language of Goal 13, the Neighborhood Plan includes a policy related to
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renewable resources and energy that reads, “Promote renewable resources and energy conservation to
decrease reliance on public utility grid through community education, outreach, and incentives.” The
amendments do not change any local energy policy or implementing provisions. Therefore, the
amendments are consistent with Statewide Planning Goal 13.
Statewide Planning Goal 14 – Urbanization. To provide for an orderly and efficient transition from
rural to urban land use, to accommodate urban population and urban employment inside urban
growth boundaries, to ensure efficient use of land, and to provide for livable communities.
Goal 14 requires cities to plan for urbanization within an urban growth boundary. The Neighborhood
Plan Boundary includes urban, rural, and urban transition areas, but the Metro Plan amendments will
not change any zoning, plan designations, or annexation procedures applicable to properties within the
Neighborhood Plan boundary nor do they amend the acknowledged urban growth boundary.
The Metro Plan amendments include removing a policy related to annexation in the River Road and
Santa Clara areas from the Metro Plan; however, this policy is now included verbatim in the
Neighborhood Plan. This policy reads, “Annexation of the River Road and Santa Clara areas will occur
only through strict application of state laws and local policies (e.g., ability to extend key urban facilities
and services in a timely manner). In each case, Eugene will make every reasonable attempt to provide
for annexation only on a voluntary basis and according to prior individual property annexation
agreements.” The Metro Plan amendments will not change any annexation procedures and will not
force County residents to annex into the City.
These amendments do not affect the City and County’s provisions regarding the transition of land from
rural to urban uses. Therefore, the amendments are consistent with Statewide Planning Goal 14.
Statewide Planning Goal 15 – Willamette Greenway. To protect, conserve, enhance and maintain the
natural, scenic, historical, agricultural, economic and recreational qualities of lands along the
Willamette River as the Willamette River Greenway.
Goal 15 is designed to “protect, conserve, enhance, and maintain the natural, scenic, historical,
agricultural, economic, and recreational qualities of lands along the Willamette River as the Willamette
River Greenway.” The River Road-Santa Clara Neighborhood Plan boundary includes lands within the
Willamette River Greenway; however, the Metro Plan amendments do not contain any changes to the
City’s or County’s Willamette River Greenway regulations. Therefore, the amendments are consistent
with Statewide Planning Goal 15.
Additionally, the amendments are consistent with Statewide Planning Goal 15 because the
Neighborhood Plan includes policies aimed at conserving, enhancing and protecting the Willamette
River Greenway, including: Policy 14.3 “Willamette River Compatibility: Encourage development that is
less intense along the river by making legislative updates to local land use regulations that include
additional standards to protect, maintain, preserve, and enhance the natural, scenic, historic, and
recreational qualities of the Willamette River Greenway;” and Policy 7.4 “Public Natural Areas: Create
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new and enhance existing natural areas, including within the Willamette River Greenway, that are
accessible to all residents.”
Goal 16 through 19 (Estuarine Resources, Coastal Shorelands, Beaches and Dunes. and Ocean
Resources):
There are no estuarine, coastal, beach and dune, or ocean resources related to the lands affected by
these amendments. Therefore, Statewide Planning Goals 16, 17, 18, and 19 do not apply.
Internal Metro Plan Consistency
City of Eugene Criteria
EC 9.7735 Metro Plan Amendments – Criteria for Approval.
(2) The proposed amendment does not make the Metro Plan internally inconsistent; and
Lane County Criteria
LC 12.300.030 Metro Plan Amendment Criteria
B. The proposed amendment does not make the Metro Plan internally inconsistent.
These Metro Plan amendments, including adoption of the River Road-Santa Clara Neighborhood Plan,
do not make the Metro Plan internally inconsistent. As stated in the Neighborhood Plan, if
inconsistencies occur between the Neighborhood Plan and the Metro Plan, the Metro Plan is the
prevailing policy document.
Metro Plan Policies
The Neighborhood Plan and Metro Plan amendments are consistent with the following policies from the
Metro Plan (identified below in italics).
Chapter II C. Growth Management Goals, Findings, and Policies
C.5 To maintain the existing physical autonomy of the smaller outlying communities, urban development
on agricultural and rural lands beyond the UGB shall be restricted and based on at least the following
criteria:
a. Preservation and conservation of natural resources
b. Conformity with the policies and provisions of the Lane County Rural Comprehensive Plan that
borders the metropolitan area
c. Conformance with applicable mandatory statewide planning goals
The Neighborhood Plan includes a policy that aims to preserve agricultural land outside the UGB,
consistent with this Metro Plan policy. The policy states, “Preserve high value farmland (Class 1 and
Class 2 soils) outside the UGB for farm use, where feasible or as the state allows.”
C.10 Annexation to a city through normal processes shall continue to be the highest priority.
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C.15 Ultimately, land within the UGB shall be annexed to a city and provided with the required minimum
level of urban facilities and services. While the time frame for annexation may vary, annexation should
occur as land transitions from urbanizable to urban.
The Neighborhood Plan is consistent with the Metro Plan policies C.10 and C.15, as the Neighborhood
Plan intends to continue current annexation policies. The Metro Plan amendments include removing a
policy related to annexation in the River Road and Santa Clara areas from the Metro Plan; however, this
policy is now included verbatim in the Neighborhood Plan. As stated in Neighborhood Plan Policy 17.4,
“annexation of the River Road and Santa Clara areas will occur only through strict application of state
laws and local policies (e.g., ability to extend key urban facilities and services in a timely manner). In
each case, Eugene will make every reasonable attempt to provide for annexation only on a voluntary
basis and according to prior individual property annexation agreements.” Annexation is voluntary,
however it is typically required when a property owner proposes to develop a property that is within the
UGB but not within city limits as a condition of certain land use approvals.
Chapter II F. River Road and Santa Clara Goals, Findings, Objectives, and Policies
The deleted section of the Metro Plan (Chapter II Section F. River Road and Santa Clara Goals, Findings,
Objectives, and Policies) is no longer relevant or necessary. The deleted findings, objectives, and policies
were relevant to the implementation of the 1987 River Road-Santa Clara Urban Facilities Plan; many
having to do with the provision of wastewater service as discussed under Statewide Planning Goal 11
above. The findings, objectives, and policies in Chapter II Section F reflect the situation at the time the
Urban Facilities Plan was completed and the resulting implementation of that plan. The policies in this
section have been addressed since their initial adoption. This section of the Metro Plan is no longer
necessary because wastewater infrastructure in the area has been built and service was extended to
developed properties to address the groundwater pollution problem that was present at the time this
Metro Plan text was originally adopted.
Policy 3 of Chapter II, Section F of the Metro Plan, concerning annexation of properties in the River Road
and Santa Clara areas will be deleted from the Metro Plan but has been included as Policy 17.4 in the
Neighborhood Plan. The annexation policy provides: “Annexation of the River Road and Santa Clara
areas will occur only through strict application of state laws and local policies (e.g., ability to extend key
urban facilities and services in a timely manner). In each case, Eugene will make every reasonable
attempt to provide for annexation only on a voluntary basis and according to prior individual property
annexation agreements.”
Chapter III A. Metropolitan Residential Land Use and Housing Element
A.23 Reduce impacts of higher density residential and mixed-use development on surrounding uses by
considering site, landscape, and architectural design standards or guidelines in local zoning and
development regulations.
The Neighborhood Plan includes policies related to reducing impacts from surrounding uses. For
example, Neighborhood Plan Policy 14.1 states, “Compatibility Transitions: Enhance compatibility
through development standards such as height and scale transitions, setbacks, buffering with trees, and
window offsets between adjacent properties that are zoned differently through legislative updates to
local land use regulations.”
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A.36 Coordinate public, private, and consumer sectors of the area’s housing market, including public-
private partnerships, to promote housing for low- and very low-income households and to increase
housing density and types.
Consistent with this Metro Plan policy, Neighborhood Plan Policy 12.2 aims to plan for affordable
housing in the River Road and Santa Clara neighborhoods through collaboration with community
partners. The policy states, “Affordable Availability: Plan for affordable and moderate-income housing
throughout the River Road and Santa Clara neighborhoods through strategies, funding, partnerships,
and execution of the City and County’s housing plans.”
Chapter III C. Environmental Resources Element
C.2 Designated agricultural lands shall be protected for agricultural uses through zoning for exclusive
farm use or equivalent acceptable zoning and through application of other protective measures.
Consistent with this Metro Plan policy, Neighborhood Plan Policy 10.1 aims to protect agricultural land
outside the UGB. It states, “Preserve high value farmland (Class 1 and Class 2 soils) outside the UGB for
farm use, where feasible or as the state allows.”
Chapter III D. Willamette River Greenway, River Corridors, and Waterways Element
D.3 Eugene, Springfield, and Lane County shall continue to cooperate in expanding water-related parks
and other facilities, where appropriate that allow access to and enjoyment of river and waterway
corridors.
D.9 Local and state governments shall continue to provide adequate public access to the Willamette
River Greenway.
The Neighborhood Plan is consistent with these Metro Plan policies, as it contains similar policies,
including Policy 9.1, “Safe and Convenient Access: Provide safe and convenient access to the riverbank
park system for people walking, biking, and using mobility devices,” and Policy 9.2, “Stewardship of the
Willamette River Ecosystem: Work with the community and non-profit organizations to balance
preservation and access to the river.” The Willamette River Greenway is a valued asset to the River Road
and Santa Clara neighborhoods.
Chapter III E. Environmental Design Element
E.3 The planting of street trees shall be strongly encouraged, especially for all new developments and
redeveloping areas (where feasible) and new streets and reconstruction of major arterials within the
UGB.
Consistent with this Metro Plan policy, preserving and planting street trees is reflected in Neighborhood
Plan Policy 7.5, “Tree Canopy: Promote, conserve, protect, and improve our urban forest by preserving
and planting street trees and encouraging private property owners to plant trees with education and
incentives, consistent with Eugene’s Urban Forestry program.”
Chapter III F. Transportation Element
F.3 Provide for transit-supportive land use patterns and development, including higher intensity, transit-
oriented development along major transit corridors and near transit stations; medium- and high-density
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residential development within ¼ mile of transit stations, major transit corridors, employment centers,
and downtown areas; and development and redevelopment in designated areas that are or could be well
served by existing or planned transit.
F.10 Protect and manage existing and future transportation infrastructure.
F.11 Develop or promote intermodal linkages for connectivity and ease of transfer among all
transportation modes.
F.13 Support transportation strategies that enhance neighborhood livability.
F.18 Improve transit service and facilities to increase the system’s accessibility, attractiveness, and
convenience for all users, including the transportation disadvantaged population.
F.26 Provide for a pedestrian environment that is well integrated with adjacent land uses and is designed
to enhance the safety, comfort, and convenience of walking.
Consistent with the transportation element in the Metro Plan, one of the five topic areas in the
Neighborhood Plan also focuses on transportation. Both sections include policies related to
infrastructure improvements, connectivity, safety for all users, and creating pedestrian-friendly
environments. See the related Neighborhood Plan policies below:
Policy 5.3 Active Transportation to Commercial Centers: Expand active transportation networks
that connect neighborhoods to their adjacent commercial areas, schools, and community
gathering spaces.
Policy 5.4 Traffic Management: Prioritize transportation infrastructure improvements to support
the traffic flow and enhance safety objectives.
Policy 13.1 Key Areas for Development: Support more development and redevelopment in key
areas for residential, commercial, and mixed-use development through legislative updates to
local land use regulations.
Policy 4.1 Safety and Accessibility: Improve safety and accessibility for people walking, biking,
and using mobility devices.
Policy 5.1 Regional Transportation Network: Work towards convenient, equitable, and
affordable access to a regional pedestrian, bicycle, transit, and vehicle network throughout the
River Road and Santa Clara neighborhoods.
Policy 11.2 Well Designed Built Environment: Update design standards through legislative
updates to local land use regulations so that they provide for gradual transitions between
different uses and scales and incorporate pedestrian scale design through building design, size,
scale, and site layout requirements.
Chapter III G. Public Facilities and Services Element
G.9 Wastewater conveyance and treatment shall be provided to meet the needs of projected growth
inside the UGB that are capable of complying with regulatory requirements.
Chapter II Section F of the Metro Plan includes policies related to providing wastewater in the River
Road and Santa Clara areas. Removing these policies will have no impact on the provision of wastewater
service to the area. This section of the Metro Plan is no longer necessary because wastewater
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infrastructure in the area has been built and service was extended to developed properties to address
the groundwater pollution problem that was present at the time this Metro Plan text was originally
adopted.
City of Eugene Criteria
EC 9.7735 Metro Plan Amendments – Criteria for Approval.
(3) When the city-specific local comprehensive plan also applies, the proposed amendment is
consistent with the city-specific local comprehensive plan.
The City Council finds that the Metro Plan amendments are consistent with the Eugene-specific local
comprehensive plan, the Envision Eugene Comprehensive Plan (Envision Eugene). The currently adopted
chapters of the Envision Eugene Comprehensive Plan include Economic Development, Transportation,
Administration & Implementation, and Eugene Urban Growth Boundary. The Neighborhood Plan’s
economic development policies are consistent with those in Envision Eugene, such as the promotion of
locally-owned businesses, capitalizing on Eugene’s economic advantages, and employment growth.
As discussed in Statewide Planning Goals 11 and 12 above, the Eugene 2035 Transportation System Plan
(TSP) is the transportation element of Eugene’s comprehensive land use plan. The Neighborhood Plan is
consistent with and aligns with policies in the TSP, especially those related to walkable neighborhoods
and compact development. For example, one of the TSP system-wide policies is to “Foster
neighborhoods where Eugene residents could meet most of their basic daily needs without an
automobile by providing streets, sidewalks, bikeways, and access to transit in an inviting environment
where all travelers feel safe and secure” and one of the transit policies aims to “Prioritize improved
transit service in Key Corridors and other areas with sufficient employment, activities, or residential
density that best support transit service and transit services that connect residents to employment
centers. If operational funding is sufficient, extend transit to support higher density housing and
employment development planned for other areas.”
The Neighborhood Plan does not affect the maintenance or updating of the comprehensive plan, any
related monitoring efforts, or the Eugene urban growth boundary. Therefore, these amendments are
consistent with the Envision Eugene Comprehensive Plan.
Refinement Plan Amendment Criteria
City of Eugene Criteria
EC 9.8424 Refinement Plan Amendment Approval Criteria.
Approval, or approval with modifications shall be based on compliance with the following criteria:
(1) The refinement plan amendment is consistent with all of the following:
(a) Statewide planning goals.
(b) Applicable provisions of the Metro Plan.
(c) Remaining portions of the refinement plan.
18
EC 9.8422 states, “Refinement plan amendment procedures only apply when specific changes are
proposed to an existing refinement plan that covers areas only within the jurisdiction of the city. The
procedures are not applicable to comprehensive updates of an entire refinement plan.”
The refinement plan criteria in EC 9.8424 do not apply to the Metro Plan amendments because the
amendments adopt a new refinement plan, they do not amend an existing refinement plan.
However, even if the Refinement Plan Amendment criteria in EC 9.8424 did apply, the City Council finds
that the criteria in subsections (a) and (b) have been addressed above and the criterion in subsection (c)
is not applicable.
River Road-Santa Clara Neighborhood Plan
Engagement Summary
Launched in fall 2017, the River Road-Santa Clara
neighborhood planning process has been a collaborative
effort among community members, River Road
Community Organization (RCCO), Santa Clara Community
Organization (SCCO), City of Eugene, Lane County, and
other stakeholders throughout both neighborhoods. The process had six phases: Reaching Out,
Neighborhood Visioning, Neighborhood Priorities, Policy Development, Action Planning, and Adoption,
with opportunities for community and stakeholder feedback along the way. This engagement summary
includes the community engagement objectives and outcomes from each of the six planning phases.
In July 2017, the Eugene Planning Commission (acting as the Citizen Involvement Committee) approved
the RRSC Neighborhood Planning Public Involvement Plan. The Project Management Team committed to
a community engagement process that was:
•Meaningful: creates a vision crafted with beauty, fun, warmth, and welcome
•Accountable: responds to ideas, critique, comments, and praise
•Inclusive: communicates with all stakeholders, including the under-represented, outside of
structured meetings, in ways that people understand and can relate to
•Transparent: makes decisions public; shares information in a variety of formats and places
•Realistic: informs about constraints, opportunities, and objectives
•Outcome-oriented: creates a community-supported and council-adopted neighborhood plan!
The Public Involvement Plan and the associated Project Charter (July 2017) established several
foundational, community-led groups that would lead neighborhood planning, including:
•Community Advisory Committee (CAC): A group of 11 voting members, appointed by the
Eugene Planning Commission, that represent the varied voices of the two neighborhoods. The
CAC was responsible for considering the full breadth of public input, developing operating rules,
working with City and County staff to reach a mutually agreed upon community vision and plan
that works within the larger Envision Eugene community vision, and making a final community
recommendation.
•Project Management Team (PMT): A small core team of the CAC co-chairs and City and County
staff tasked with carrying out the project in accordance with the Project Charter.
•Technical Advisory Committee (TAC): Composed of City and partner agency staff to serve as
advisory body to the Project Management Team and the Community Advisory Committee. The
TAC represented their own project or departmental interests and communicated how the
neighborhood-specific issues fit within the broader City/County context.
•Topic Area Working Groups: Each group focused on one of the Plan’s priority areas and
included community members and staff.
•River Road and Santa Clara Community Organizations: Both community organizations
supported public outreach throughout the project. During key decision points in the project, the
organizations led efforts to host meetings and communicate with stakeholders. Both community
organizations made recommendations to the CAC to inform the final community
recommendation on the plan adoption package.
Appendix 1
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Engagement Summary
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Phase 1: Reaching Out (2017)
In the summer of 2017, the community organizations, volunteers, and staff began the ‘Reaching Out’
phase to raise awareness about the project and opportunities for input.
The goal of the Reaching Out phase was to give as many community members as possible the
opportunity to provide input into the vision for their neighborhood. The results of this outreach
identified areas where community members were united, and it flagged some more complicated areas
for future neighborhood conversations.
Raising Awareness
Community volunteers and project staff began raising awareness about the project by meeting with
neighbors where they were. They promoted the project at fun activities like Sunday Streets and the
grand opening of the new River Road Elementary School and during routine errands at the grocery store.
Volunteers from the community organizations canvassed their neighborhoods with informational flyers,
sent updates in their newsletters, and used social media to share information. In total, there were more
than 20 events in advance of the fall kick-off event.
Kick-off Event
The fall 2017 community event at North Eugene High School was a huge success, with nearly 400 people
filling the Highlander gymnasium. Activities at the kick-off event included a mapping exercise to identify
what residents value about the area and a ‘my ideas’ activity that asked participants to share their
future hopes for the neighborhood. Community volunteers and project staff were thrilled with this
result but knew there were community members who were unable to attend evening meetings, so an
extra effort was made to meet with them at more convenient times and places with targeted outreach.
Targeted Outreach
To bring in fresh voices, the project stepped out of the meeting room and into the community,
conducting unique activities with interesting visuals that stimulated important conversations. The
project staff and community volunteers formed partnerships with local organizations like St. Vincent
DePaul, Food for Lane County, and our local schools. These organizations helped reach a broader cross
River Road-Santa Clara Neighborhood Plan
Engagement Summary
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section of residents. Small group meetings were held with high school students, affordable housing
residents, Spanish speakers, and rural residents in Santa Clara. In addition, a group of neighborhood
volunteers and City and County staff did door-to-door canvassing of local businesses to gather their
input on the neighborhood.
• Rural Santa Clara: SCCO includes rural residents who live beyond the urban growth boundary (UGB).
Members of this community are more unlikely to participate in broader neighborhood workshops
that are not tailored to their unique geographic location. The project staff and volunteers thought it
was important to target outreach efforts at these constituencies. A rural Santa Clara workshop in
December 2017 attracted over 20 participants.
• Business Canvassing: Regardless of whether
business owners and employees reside in the
neighborhood, they have a stake in the outcome of
the neighborhood planning process. However, they
are often tied to their workplace and may not be
able to attend conventional neighborhood
outreach events. Community volunteers and
project staff made a concerted effort to reach out
to businesses in the River Road and Santa Clara
neighborhoods. In November and December 2017,
neighborhood volunteers teamed with City and
County staff to conduct door-to-door outreach.
These pairs spoke with nearly 300 businesses along River Road and in other commercial areas
throughout the neighborhoods. They promoted the planning process, conducted interviews, and
encouraged business owners and employees to get involved.
• Inclusive Outreach: Building a foundation of trust and democracy starts with understanding who has
a stake in the outcome of the project and how and when they can participate. Public meetings are
often filled with elderly, white, middle-class people listening to public servants slogging through long
presentations. To involve youth, low-income residents, people with disabilities, and communities of
color, project staff and community volunteers forged relationships with community partners who
have earned the trust and respect of historically marginalized community groups through consistent
service. Working in collaboration with organizations such as Saint Vincent De Paul, Food for Lane
County, and the school districts, the project involved people who do not typically attend public
meetings.
This targeted outreach to rural Santa Clara residents, the business community, and historically
marginalized community groups helped diversify the voices involved in the neighborhood planning
process. The values, hopes, and concerns expressed by these stakeholders were balanced with those
expressed by other members of the public to create a comprehensive community vision.
City staff and community volunteers
canvassing neighborhood businesses
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Phases 2-3: Visioning and Neighborhood Priorities (January – June 2018)
The Visioning and Neighborhood Priorities phases continued focus on raising awareness of the project
and asking community members what they valued in their neighborhoods and hopes for the future.
Starting in early 2018, the CAC and topic area Working Groups met monthly to compile and review the
feedback received during the Reaching Out phase, recognizing the priorities and values heard during this
process, as well as the many years of community engagement through previous planning work. Different
themes emerged and the Neighborhood Plan began to develop around five main topic areas: Economic
Development, Transportation, Parks and Natural Resources, Land Use, and Community. A vision for the
future of the River Road and Santa Clara communities started to appear.
Outreach Questionnaires
In summer 2018, the CAC and Working Groups developed outreach questionnaires for each of the plan
topic areas. These questions were used during community forums, an online survey, and several
targeted outreach events.
The June 2018 community forums (attended by over 300 people) provided a chance for neighbors to
come back together and review the community vision, developed by the CAC, working group members
and staff, based on community input received in the Reaching Out Phase. They discussed the
questionnaire in small groups and heard each other’s opinions. The events were held on two different
days of the week (Wednesday and Sunday) and at different times (evening and afternoon) to make it
more accessible to people with varying schedules. A light meal and activities for children were provided.
Recruitment to these forums included a hard copy invitation mailed to all property owners in River Road
and Santa Clara, email invitations to more than 1,000 people on the project’s interested parties list, yard
signs at high traffic areas (such as parks and major intersections), and posters in area businesses. In
addition, community volunteers attended neighborhood events and personally extended invitations.
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The online survey, posted after the June
2018 forums, was disseminated through
the website, interested parties emails, area
organizations, and Facebook, resulting in
106 completed surveys.
The project staff and community
volunteers worked hard on inclusive
outreach to connect with people who were
not well represented at the community
forum: youth, communities of color, people
with disabilities, and low-income residents.
Events included a picnic for young families,
attendance at the North Eugene
Highlanders football team practice, a small
group discussion with people with
disabilities, and individual conversations
with people with limited incomes.
The project collaborated with organizations such as Cornerstone Housing, St. Vincent De Paul,
Headstart, Lane Independent Living Alliance, St. Mary’s Church, the Confederated Tribes of the Siletz,
North Eugene High School, and Huerto de la Familia. This targeted outreach resulted in an additional
142 completed surveys.
A CAC volunteer guides a neighbor through a survey at a
community event
Chatting with the North Eugene Highlanders football team
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Phase 4: Policy Development (July 2018 – May 2019)
After laying the groundwork through the phases of Reaching Out, Visioning, and Neighborhood
Priorities, the Policy Development phase started in late 2018 through spring 2019 and focused on the
drafting of policies related to the vision and neighborhood priorities developed from community input.
Throughout the policy development phase, Working Group meetings were held periodically and
interested community members were welcome to attend.
Policy Round-Up
Policy writing was led by the CAC and supported by staff on the TAC as well as Working Group members.
At the ‘Policy Round-Up’ in December 2018, participants sorted the draft policies into broad, cross-
cutting themes organized under 18 high-level goals. The goal of the activity was to review the draft
policies and identify missing ideas, such as places where certain themes across a topic area were not
well represented within the draft policies. More than 60 people participated.
Triple Bottom Line Sounding Board
In January 2019, the TAC did a closer review of the policies to ensure that the draft policies aligned with
existing City and County policies. In February 2019, the first Triple Bottom Line Sounding Board meeting
was held to provide a citywide perspective about the equity, environmental, and economic implications
of proposed action items in the Neighborhood Plan topic areas. Throughout the topic areas, there are
overarching themes such as equity and inclusion, connectivity, healthy people and climate, safety,
prosperity, and neighborhood identity.
River Road Corridor Study
February 2019 brought the first workshops for the River Road Corridor Study.1 Over the span of the
three-day open house the public had a chance to dive into the details and create actual designs for
neighborhood centers along River Road. The theme of the first open house was, “Getting Started:
1 The River Road Corridor Study was a partnership between Lane Transit District and the City of Eugene, supported
by a grant from the Federal Transit Administration. The completed study is available here: https://www.eugene-
or.gov/DocumentCenter/View/60545/River-Road-Corridor-Study-FTA-Grant
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Engagement Summary
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Reflecting the Neighborhood Vision and Priorities,” the second “Developing Concepts: Exploring the
Ways the Vision Can Take Shape Along the Corridor,” and the third open house concluded with
“Establishing Criteria: Refining Ideas and Creating Evaluation Criteria.” These workshops were followed
by an email survey to participants asking about additional ideas, concerns, and areas of excitement. For
those that couldn’t attend, we developed an online survey to give people an opportunity to weigh in on
both high-level principles for the project and some of the early concepts.
As part of the initial workshops, the Corridor Study project staff hosted a Business Round Table, inviting
businesses and commercial properties along River Road to talk about design concepts along the corridor
and provide input.
Planning in Action Open House
In April 2019, another community event, the ‘Planning in Action Open House’ at North Eugene High
School provided community members an opportunity to review the draft policies as well as draft
actions. The Open House took place on both a Sunday afternoon and a Wednesday evening to
accommodate as many community members and businesses as possible. Food and activities for children
were provided at these meetings. More than 200 neighbors attended in total and there were great, in-
depth conversations at each of the tables. There were many new faces joining the neighborhood
planning process at these open houses. These conversations were a chance for neighbors to see how
their concerns and aspirations were represented in the draft policies and started the transition from
policy development into action planning.
On May 15, 2019, City Council officially approved the draft goals and policies as a platform for moving
into the Action Planning Phase.
Photos from the Corridor Study Workshop #1
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Engagement Summary
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Phase 5: Action Planning (May 2019 – March 2021)
In May 2019, the project transitioned into the Action Planning phase, which focused on drafting,
evaluating and prioritizing actions to implement the draft policies. Refining the action items was a
collaborative process among the CAC, Working Group members, and City, County, and partner agency
staff to incorporate community and technical feedback.
River Road Corridor Study
In June 2019, project staff held a second series of Corridor Study workshops. Participants learned about
corridor concepts and land use and zoning options. The design team and community members discussed
implementation strategies and land use policies that could guide the type and location of growth. As
they reviewed the work of the design team, community members were asked a series of questions to
determine whether the proposed development standards and land use types fit with the vision for the
River Road Corridor area and desired neighborhood character. Community members, staff, and
consultant team members brainstormed draft land use concepts, zoning options and design standards
to further vet with the community using an online survey throughout summer and fall 2019 focusing on
two draft land use concepts.
Project Fair, Pumpkin Pie and Planning, and Community Events
Also in June 2019, project staff highlighted the Neighborhood Plan at a City of Eugene Planning Division
Project Fair at the Downtown Library, connecting with community members and talking to them about
the neighborhood planning efforts. Staff and community volunteers attended several other events
throughout the summer of 2019 to talk with community members about the Neighborhood Plan and
collect input.
In November 2019, community volunteers and project staff hosted the ‘Pumpkin Pie and Planning’
event. Over 150 community members, the CAC and City and County staff discussed and shared thoughts
on draft action items. It was both a celebration with neighbors on all the work that had been done on
the Neighborhood Plan and an opportunity to continue providing input. Highlights of the presentation
and discussion included land use, zoning, better transportation, the development of parks and the
future of housing in Santa Clara and River Road. Given the large number of participants, discussions
were geared towards covering topics with highest priority and expressing support or concern for the
action items. Free pumpkin pie was available for those who attended, as well as harvest art activities,
River Road-Santa Clara Neighborhood Plan
Engagement Summary
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and a chance to win a basket of goodies. The Land Use topic area had the widest range of opinions, with
many participants wanting more information on future land use standards that could address
community concerns.
Online Survey
An online survey was open from August to November 2019, reaching nearly 500 respondents and
collecting input and concerns regarding draft actions. Results from in-person outreach events were
collated with the online survey results to refine policies and actions.
Triple Bottom Line Sounding Board
In February 2020, the planning team convened a second Trible Bottom Line Sounding Board meeting,
and their feedback was collected on the Action Plan highlights.
Neighborhood Conversations
From January to March of 2020 a series of small group discussions, Neighborhood Conversations, took
place in common neighborhood gathering spaces to discuss how the proposed Neighborhood Plan vision
would be implemented. At each of these small group meetings, participants reviewed the proposed land
use concepts and discussed: What land uses will be allowed? How is zoning proposed to change? How
quickly might changes start to happen? These conversations focused on the Land Use topic area of the
Neighborhood Plan and exploring the initial details of the River Road Corridor Study.
An invitation to the Neighborhood Conversations was mailed to 16,000+ addresses including all
residents and property owners in the neighborhood, emailed to the 1,500+ interested parties list, and
shared by the River Road and Santa Clara Community Organizations. Overwhelming interest from
residents and property owners in the neighborhood led to scheduling additional meetings – 13
conversations in total, attended by approximately 200 residents. Another 80+ people did not attend
but learned about the project and received answers from staff or community leaders about their
questions in response to the invitations.
Approximately half of the participants
were new to the project, and the other
half had some previous knowledge or had
participated in a Plan meeting. While most
participants were over 50, the project staff
and community volunteers did engage
younger residents and communities of
color through both the Conversations and
a meeting hosted jointly with El Camino
Del Rio Elementary School in River Road.
The meetings provided the opportunity for
groups of staff, volunteers, and
community members to discuss elements
of the land use changes, sharing support and reservations.
In mid-March 2020, the COVID-19 pandemic hit and slowed down the engagement process. However,
after receiving comprehensive feedback from previous engagement, the CAC continued to meet virtually
on Zoom each month and refine the draft actions. Project staff continued to send newsletters through
our interested parties email list and in March 2021 launched the River Road-Santa Clara Neighborhood
Plan Engage Eugene project website, part of the City of Eugene’s online engagement platform.
A Neighborhood Conversation at Camino Del Rio
River Road-Santa Clara Neighborhood Plan
Engagement Summary
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Phase 6: Adoption (March 2021 – xxx 2024)
On May 12, 2021, project staff received direction from the Eugene City Council and Lane County Board
of Commissioners to move into the Adoption Phase and prepare a plan adoption package for community
review. Between spring 2021 and spring 2023, staff and the CAC worked on refining the adoption
package and adapting the plan and implementation tools to evolving state requirements, including
legislation affecting middle housing and more climate-friendly housing development.
In March 2023, the CAC approved bringing the draft Neighborhood Plan, Action Plan, and neighborhood-
specific code amendments out for community feedback, kicking-off the broader engagement process for
the Adoption Phase. Updated drafts of the Neighborhood Plan and Action Plan and an initial draft of the
neighborhood-specific code amendments were published to the project website and the project’s
Engage Eugene site.
Public Information Campaign
Project staff distributed information about neighborhood planning and the adoption process through a
variety of digital media, including updates to the project website, Engage Eugene webpage, social media,
and e-newsletters from the City Planning Division, and both community organizations. Project staff also
developed summary documents that were available online and at in-person events, as well as graphics
depicting the proposed code amendments.
Postcard Mailing
In early May 2023, project staff mailed
a postcard to all owners and residents
of the River Road and Santa Clara
neighborhoods, approximately 16,800
people. The postcard featured ways to
engage during the adoption phase,
including virtual information sessions,
an in-person community event,
meeting toolkit, and online feedback
form. A postcard mailing for ways to engage during the Adoption Phase
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Engagement Summary
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Virtual Information Sessions
Project staff hosted two virtual information sessions to provide an opportunity for community members
to learn about neighborhood planning, the draft adoption package, and ways to engage. A total of 21
people attended the two sessions in May 2023, including CAC members.
Facilitated Discussions with Community Organizations
Project staff participated in the community organization meetings to provide an update on
neighborhood planning and support small group discussions. The RCCO meeting was in-person only,
while the SCCO meeting included an opportunity for virtual participation during the presentation
followed by in-person discussions. Approximately 65+ people participated in the two meetings.
In-Person Community Event
Project staff and the CAC hosted an evening, in-person community event at North Eugene High School
on May 25, 2023. A total of 47 residents participated. Community members were invited to learn about
the draft plan by visiting topic tables and reviewing maps and topic area summaries. Staff presented an
overview of neighborhood planning and then participants joined small group discussions based on topic
area. In addition to CAC members and City and County planning staff, other city departments including
Parks and Open Space, Transportation Planning, and the Office of Equity and Community Engagement
participated in discussions.
Meeting Toolkit
For community members who wanted to dive deeper into the plan, project staff provided a meeting
toolkit. This toolkit offered guidance on hosting a small or medium-size group discussion with neighbors,
family and friends, or existing groups. The same guidance was used by the community organizations for
their meetings.
Community Advisory Committee members at the May
Community Event
Community members learning about
the Draft Neighborhood Plan