RIVERFRONT URBAN RENEWAL DISTRICT

RIVERFRONT URBAN RENEWAL DISTRICT
Project box

Geographical area: North-America

Location: Eugene, United States

City size: Medium (between 250,000 and 1,000,000 inhabitants)

Promoter: Eugene's Urban Renewal Agency

Developer: Atkins Dame, Inc.

Start year:

End-year: In progress

Implementation phase: Implementation in progress

Project size: Neighborhood

Total area of intervention (in sqm): 64.750

Total investments (in USD): 75 mln

Project overview

The Eugene Riverfront Urban Renewal District is an urban regeneration initiative located in the northeastern sector of Downtown Eugene, Oregon, near the University of Oregon and the future site of a federal courthouse. The intervention area spans approximately 64,750 square metres and consists of a former post-industrial brownfield previously owned by the Eugene Water & Electric Board (EWEB). Historically dedicated to utility infrastructure, the site had become both physically and socially disconnected from the urban fabric. Launched in 2018, the regeneration effort aims to transform this underutilised area into a vibrant, sustainable, and inclusive mixed-use neighbourhood. This transformation aligns with the vision outlined in the 2010 EWEB Riverfront Master Plan, which serves as the city’s strategic blueprint for reconnecting Downtown Eugene with the Willamette River. The project seeks to deliver long-term environmental, social, and economic benefits to the broader community, positioning the riverfront as a central and accessible civic space. 

The redevelopment project is managed by the City of Eugene through its Urban Renewal Agency Board, employing a public-private partnership model that leverages both debt instruments and value-capture mechanisms to finance the intervention. Capacity-building support is provided by the Lane Liveability Consortium, a regional initiative that includes the City of Eugene, Lane County, the City of Springfield, and the University of Oregon. The consortium plays a key role in facilitating collaborative governance and aligning investment priorities across sectors such as housing, transport, and economic development. 

The project emphasises walkability, environmental restoration, and social vitality as core principles of the redevelopment strategy. It encompasses a diverse set of components, including real estate development, the creation of the Downtown Riverfront Park, the construction of Riverfront Plaza and Viaduct Park, and the Railroad Quiet Zone. One of the central features is the restoration of the historic Steam Plant, which is being transformed into a cultural and community hub. Additionally, the redevelopment includes infrastructure improvements aimed at eliminating routine train horn noise and improving overall liveability in the area. An essential aspect is the realisation of 75 affordable housing units. The construction works began in 2022 with an estimated total investment of around $75 million and $42 million in property tax revenues to local jurisdictions by 2049. 

The redevelopment project provides a comprehensive transformation with significant economic, social, and environmental impact. It catalyses public and private investment, generating jobs, affordable housing, and long-term increases in taxable property value. Socially, it enhances equity, mobility, and cultural identity through inclusive housing, multimodal infrastructure, and the design of public spaces for the community. Environmentally, it supports climate adaptation and mitigation through green construction, sustainable mobility, soil remediation, the enhancement of urban biodiversity, and ecological restoration along the riverfront, fostering a resilient and inclusive urban district. 

The Riverfront Urban Renewal District employed a mixed-use approach, therefore creating residential buildings, commercial and business spaces, transportation infrastructure and Railroad Quiet Zone, institutional and public buildings, a 12140 sqm Downtown Riverfront Park and a 4046 sqm Plaza. The project area falls under the Downtown Riverfront Special Area Zone (S-DR) with the Water Resource Conservation (WR) regulation, which supports the creation of an active, vibrant area along Eugene’s downtown riverfront, balance between redevelopment certainty and flexibility, as well as protecting the site's ecological functions. 

Benefits

The project attracts significant public and private investment to stimulate employment, business development, housing accessibility, and property value appreciation. It introduces over 617 residential units, 125 hotel rooms, and approximately 1300 square metres of commercial space, generating new opportunities for local businesses in retail, hospitality, and services. This will enhance tourism and tax revenues for public bodies. The transformation of the historic Steam Plant into a cultural and community hub is catalysing further entrepreneurial activity. The project creates about 1,260 direct and secondary jobs during the construction period. In the long term, it will provide new job opportunities in hospitality and other commercial activities. In addition, the improved walkability, connectivity, and high-quality public spaces will support small business viability and economic interaction.  

To promote inclusive growth, the project integrates the development of affordable housing units, ensuring 30 years of affordability through a partnership with Homes for Good, the housing authority of Lane County. This effort is designed to enhance residential access to nearby employment centres, retail services, and other essential amenities for low-income households. In support of this initiative, the Urban Renewal Agency Board has allocated $7.5 million, which is a long-term economic investment in the local labour market and local service development. Until 2049, the project is projected to bring in approximately $42 million in property tax revenues to local jurisdictions. The property taxes will be distributed between the City of Eugene with $19.8 million, Lane County with $3.6 million, School District 4J with $13.4 million, and Lane Community College and Lane ESD with $2.4 million to their budgets. 

The project aims to significantly reduce environmental impacts on both the city and the river ecosystem through mitigation, adaptation, and circularity strategies. It promotes green construction standards for real estate and infrastructure, LED street lighting, shared energy systems among buildings, recycled materials, and advanced air filtration systems. These interventions will reduce Downtown Eugene’s per capita carbon emissions over the long term. Further mitigation will be achieved through low-emission mobility, such as the PeaceHealth Rides bike share system and electric mobility infrastructure within the project area. This will decrease average kilometres driven, carbon emissions, and other auto-oriented pollutants. For the Steam Plant specifically, the redevelopment avoids fossil fuel energy sources, utilising a ground-source heat pump system. It is expected to exceed the minimum energy standards required by 20–30%. On the adaptation side, the project prioritises the ecological rehabilitation of the post-industrial site, which includes soil remediation activities. Considering the natural habitat of the riverside, the project aims to foster biodiversity and climate resilience. It will integrate native and non-invasive species and design low-maintenance environments along the river, which require minimal irrigation or chemical inputs. Additionally, the public streets will include integrated stormwater systems. It allows for reducing and filtering runoff before it enters the Willamette River. Native planting along streets and riverbanks supports pollinators and local fauna and strengthens ecological corridors. 

The project aims to foster social equity and inclusiveness by constructing 75 affordable housing units for households with a median income below 60%. Safety and sustainable mobility will be advanced by significant investments in multimodal infrastructures. The project includes the improvement of the connectivity of the pedestrian, bicycle lines and bus services, and ensures the proximity to essential services following the 20-minute district model. The construction of the Railway Quiet Zone will improve access to the Willamette River, Downtown Riverfront Park, and fulfil the requirements for noise levels adjacent to affordable housing in the Eugene Riverfront Urban Renewal District. The redevelopment of the industrial landmark, Eugene Steam Plant, enhances the cultural identity and social cohesion in the project area. It will be transformed into a public venue comprising performance and exhibition spaces for art, education, and social interactions, as well as a hotel, coworking facilities, and amenities such as electric vehicle and micromobility rentals. Meanwhile, the Downtown Riverfront Park and Riverfront Plaza improve connectivity to the river for both recreation and the everyday activities of local citizens. 

The newly developed real estate within the Riverfront Urban Renewal District has already achieved two of the most recognised sustainability certifications in the United States. The project has received Earth Advantage Platinum Multifamily Certification, the highest level of recognition under this program. It evaluates performance across five key sustainability pillars: energy, health, land, materials, and water standards for environmental responsibility and efficiency. In addition, the buildings have been awarded the Fitwel Healthy Building Certification, which emphasises the social dimension of sustainability. This certification assesses health and well-being. It measures reductions in illness and absenteeism, enhancements in safety and comfort, and improvements in equity and inclusivity, especially for vulnerable populations. 

Finance model

The Riverfront Urban Renewal District project is funded through a combination of public and private resources. It is based on a public-private partnership between the City of Eugene and Atkins Dame Inc., a local real estate developer. As a private partner, Atkins Dame Inc. invests $113 million, which includes $2.7 million for land acquisition, 50% of the infrastructure costs ($7.725 million), $1.5 million for sidewalk construction, $0.9 million for the development of the viaduct park, and around $100 million dedicated to the construction of residential units, a hotel, and commercial spaces.  

On the public side, the City of Eugene, acting through its Urban Renewal Agency Board, contributes around $12.2 million. This includes costs associated with land retention ($3.1 million), the remaining 50% of infrastructure expenses ($7.725 million), and $1.4 million for public sidewalk improvements. Additionally, the city is using public funds for the development of key community assets, including the Downtown Riverfront Park and the Quiet Zone, to eliminate the routine sounding of train horns in the district (the latter valued at $3.7 million). In 2024, the Urban Renewal Agency increased its commitment to up to $75 million. It will subsidise affordable housing development and extend the Tax Increment Finance revenue collection period for 25 years. Furthermore, in 2021, the Oregon State Legislature announced that the City of Eugene would receive $5 million from the American Rescue Plan Act, federal funds allocated to Oregon by the U.S. Department of the Treasury, to support the second phase of Downtown Riverfront Park construction. 

The Riverfront Urban Renewal District in Eugene is financed through a mix of debt instruments, value-capture mechanisms, and grants. These instruments collectively support both public infrastructure and private investments, ensuring a coordinated and sustainable district redevelopment.  

Among the debt instruments, the Riverfront Renewal Loan, a publicly guaranteed loan managed by the city authority, is used by the private developer Atkins Dame Inc. for developing the project area, including sidewalk construction and improvement of the riverfront natural area. In addition, Dream Plant LLC, a local real estate developer involved in the Steam Plant area, received a loan for asbestos abatement and revitalisation efforts. Other state instruments, such as the 2018 Parks and Recreation Bond and the 2023 Parks and Recreation Levy, are used by the Urban Renewal Agency Board, the City of Eugene's office, for urban renovation of the Downtown Riverfront Park and Steam Plant Plaza project. Finally, the city-level fund, Capital Improvement Program (CIP), is used by the Urban Renewal Agency Board for infrastructural redevelopment of the Quiet Zone railway and capital reconstructions in the project area. 

Among value-capture mechanisms, the city-level Tax Increment Financing (TIF), also called Urban Renewal, is used by the Urban Renewal Agency Board to finance improvements and redevelopment in the riverfront area by reinvesting the increase in the area’s property taxes. The initial Urban Renewal spending for the project implied $45 million. However, in 2024, the Agency Board raised its previously established TIF limit to $75 million to further stimulate private investment and support the development of a safe and accessible neighbourhood. The additional funding is directed towards affordable and mixed-income housing, enhancement of public open spaces and streets, and construction of community facilities, including the Downtown Riverfront Park. In addition, it recently approved an additional $6 million of Urban Renewal to support the redevelopment of the Steam Plant. Another mechanism is the state-enabled Tax Abatement program known as the Multi-Unit Property Tax Exemption (MUPTE), which permits to avoidance of property taxes on the value of new residential construction in the project area. It has been granted by the City of Eugene to Atkins Dame for the construction of approximately 617 market-rate multi-family units, with the exemption lasting around 10 years.  

Finally, among grant instruments, the Concession Agreement were signed between the City of Eugene and Dream Plant LLC for the Southern Plaza and Viaduct Park. It grants the developer non-exclusive use of the plaza space, exclusive concession rights for sustenance vending, and responsibility for landscape maintenance and public supervision of the area. The agreement reduces the city’s long-term costs and preserves public access to the area. Finally, the Oregon State Legislature provided $5 million in Intergovernmental Transfer to the City of Eugene to support the second phase of Downtown Riverfront Park, which includes the Plaza and a playground. 

References and Credits

EWEB Riverfront Masterplan 2010. Accessed on 16/04/2025. https://www.eugene-or.gov/DocumentCenter/View/28890 

Official website of Eugene City, project page. Accessed on 14/04/2025. https://www.eugene-or.gov/3506/Downtown-Riverfront   

Riverfront Urban Renewal District Plan and current amendments. Accessed on 14/04/2025. https://www.eugene-or.gov/DocumentCenter/View/4831/Riverfront-Urban-Renewal-Plan?bidId= 

City council work session and work session of the urban renewal agency on July 9, 2018. Accessed on 15/04/2025. https://www.eugene-or.gov/DocumentCenter/View/41672/9-July-2018-AIS-and-Attachments-for-web 

City Council Work Session and Urban Renewal Agency Meeting on January 22, 2024. Protocols of last investments, land use changes. Accessed on 15/04/2025. https://eugene.ompnetwork.org/embed/sessions/283093/city-council-work-session-and-urban-renewal-agency-meeting-january-22-2024 

Developer’s proposal websites. Accessed on 17/04/2025. https://theriverdistricteugene.com/the-river-district/ and https://www.heartwoodeugene.com/healthyliving   

Zoning code of Eugene city. Accessed on 18/04/2025. https://eugene.municipal.codes/EC/09_S-DRZone?__cf_chl_tk=hy1W6P_PMfHlWfam9r5RNC1U.Bp7bieYqnNpibO8Zp0-1744296495-1.0.1.1-1Hon1syOocxqi4Z0_1Lvt0h3Uvp.cuYg8i7AUc4fjrA 

Eugene Downtown Riverfront Park development. Accessed on 14/04/2025. https://dailyemerald.com/151089/city-news/eugene-downtown-riverfront-park-development-continues/ 

Eugene Water & Electric Board. Accessed on 21/04/2025. https://www.eweb.org/your-public-utility/news/eweb-and-city-finalize-sale-of-former-riverfront-headquarters 

State funding for Eugene. Accessed on 21/04/2025. https://eu.registerguard.com/story/news/2021/07/02/eugene-oregon-legislature-funding-american-rescue-plan-safe-sleep-riverfront/7821059002/