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Home My WebLink AboutItem A: Water Quality Protected Waterways ECC UGENE ITY OUNCIL AIS GENDA TEM UMMARY Work Session: Water Quality Protected Waterways Meeting Date: May 14, 2008 Agenda Item Number: A Department: Public Works Staff Contact: Therese Walch www.eugene-or.gov Contact Telephone Number: 682-8647 ISSUE STATEMENT The purpose of this work session is to present the Water Quality Protected Waterways to the council and have an open discussion on the proposed Chapter 9 code amendments (see Attachment A: Draft Ordinance and Exhibits A-D) and related zone changes in preparation for a public hearing May 19, 2008. The proposed code amendments implement stormwater policy as described in the City’s Comprehensive Stormwater Management Plan, implement statewide planning Goal 6 (Air, Water, and Land Resources Quality), and respond to federal Clean Water Act regulations including the Upper Willamette Total Maximum Daily Load. The ordinance establishes a /WQ Water Quality Overlay Zone which will protect the physical integrity and water quality function within and adjacent to otherwise unprotected waterways identified pursuant to section 303(d) of the federal Clean Water Act, waterways that are tributaries to those waterways, and headwater streams. This proposal is one element of a multi- faceted strategy aimed at reducing stormwater pollution and protecting water quality in our local waterways. BACKGROUND City Council Action History - Open Waterways Ordinance In April 2000, the Eugene City Council adopted the Open Waterways ordinance into Chapter 6 of the Eugene Code. The ordinance was subsequently challenged on the basis that it was a land use decision, was remanded back to the City by the Land Use Board of Appeals, and ceased to be in effect as of July 2001. The current proposal, a land use regulation protecting specifically identified waterways for their water quality functions and values, essentially replaces the open waterways ordinance. The Water Quality Protected Waterways ordinance before the City Council, and recommended for approval by the Planning Commission, includes repealing Chapter 6 Open Waterway provisions, which are no longer in effect but are still in the Code, and amending Chapter 9 of the Eugene Code with new provisions. Development of the Current Proposal In June 2006, Public Works initiated a proposal for protecting waterways for water quality purposes. The initial proposal was based upon a review of the scientific literature related to water quality buffers, and an understanding of the status of Eugene’s waterways with respect to their water quality condition and federal and state water quality regulations. The June 2006 proposal identified nearly 90 miles of waterways for protection, including waterways identified as “water quality impaired” pursuant to the Clean Water Act, waterways that are tributaries to water quality impaired waterways, and sensitive headwater streams that drain to water quality impaired waterways. The initial proposal included 75-foot Y:\CMO\2008 Council Agendas\M080514\S080514A.doc setbacks along each side of all waterways proposed for protection. A public outreach process was conducted on the initial proposal including an open house where affected property owners, interested persons, and the general public attended and provided feedback. Key feedback from the initial outreach process included: 1) waterways with existing protections, such as Goal 5 wildlife habitat protections, do not need additional regulations; 2) the one-size-fits-all setback width of 75 feet should be modified to account for individual waterway and lot conditions and should be similar in size to the Goal 5 protections, and 3) the incremental water quality benefits resulting from wider setbacks on waterways already protected would not off-set the additional cost and complexity of administering and enforcing the provisions. As a result of the issues raised, significant revisions were made to the proposal. Water Quality Protections would be proposed only for those water quality waterways that have no existing protections. This change reduced the total miles of “water quality protected waterways” from 90 to about 15 miles. Setback widths were revised to match existing wildlife habitat setback distances, namely 40 feet measured from centerline on each side of the waterway for headwater streams, and 25 feet measured from the top of a high bank on each side of the stream for all other identified waterways. The rationale for proceeding with this approach included the acknowledgement that, when viewed as a component of the broader, big-picture set of protections (including Goal 5), the 15 miles of waterways recommended for protection filled a significant gap in addressing the City’s water quality issues from a watershed-system approach. Planning Commission Recommendation The Eugene Planning Commission held introductory work sessions on the proposed Water Quality Protected Waterways on September 10, 2007, and January 14, 2008. A public hearing was conducted on January 15, 2008, after which three discussion/deliberation meetings were held (March 10, March 17 and March 31). As a result of the Planning Commission input and testimony received, additional changes were made to the proposal. Changes made included: increasing flexibility through the use of setback averaging under certain circumstances; broadening the use of non-native plantings that are not considered to be invasive; clarifying the adjustment provisions, and map corrections. On March 31, 2008, the Planning Commission voted (4 in favor, 3 opposed) to recommend that the City Council adopt the draft ordinance. Draft meeting minutes from the March 31 Planning Commission meeting are provided as Attachment B. Planning Commission meeting materials are available on the project web site at: http://www.eugene-or.gov/wqpw. Supplemental information provided to the Planning Commission in response to questions and testimony, and hard copies of Planning Commission meeting materials and minutes are available at the City Manager’s Office, Room 105 (Binder labeled: Water Quality Protected Waterways - Supplemental Information). Planning Commissioners who favored the current proposal expressed their support because: ? Eugene is located where it is because of the network of streams; we should protect what little of the green infrastructure we have left. ? This is an incremental step that may seem inconsequential, but the broader system benefits pan out. ? Managing personal choices on-site is preferable to a major industrial (treatment) fix at the outfall. ? The proposed regulations are analogous to human health where the individual health benefits of any one thing (quitting smoking; eating healthier foods) are hard to measure but undoubtedly would provide some positive benefits. Y:\CMO\2008 Council Agendas\M080514\S080514A.doc Planning Commissioners who did not support the current proposal expressed the following concerns: ? The incremental water quality benefit does not pan out in comparison to the significant impact to a limited number of individual property owners. ? Applying restrictions to a relatively small number of properties versus the disproportionately large urbanized area from which stormwater runoff flows untreated into the local area waterways is inequitable. ? Vegetation removal and planting requirements in the draft ordinance are too restrictive. ? Goal 5 already achieves the majority of the water quality protection goals. Miles of Waterways and Acres of Land Affected The effects of the current proposal, reflecting changes made in response to Planning Commission testimony and related mapping changes on property owners, are as follows: Miles of Waterways and Acres of Land Affected by Water Quality Protected Waterways April 2008 Ownership Miles of Waterways Number of Affected Acres City UGB Total City UGB Total Private 3.63 3.52 7.15 44.53 33.60 78.13 2.63 0.80 3.43 24.44 6.96 31.40 Parcels Public 2.69 0.36 3.05 35.58 4.58 40.16 Right-of-Way 5.32 1.16 6.48 60.02 11.54 71.56 Subtotal TOTAL 8.95 4.68 13.63 104.55 45.14 149.69 ADDITIONAL BACKGROUND Eugene’s Waterways and Water Quality Eugene’s waterways are part of the larger Willamette River watershed system that provides many beneficial uses such as recreating, fishing, irrigation, and drinking. The main stem of the Willamette River flows through Eugene for approximately six miles. Surface runoff from Eugene’s urban growth boundary is conveyed to the Willamette River, either via direct outfalls, or via a combination of pipes and open waterways, including Amazon Creek, Willow Creek, the Amazon Diversion Channel, the A3 Channel, Fern Ridge Reservoir, and the Long Tom River. Several local area waterways are listed by the Oregon Department of Environmental Quality (DEQ) as “water quality impaired,” or not meeting certain water quality standards for their designated beneficial uses, including the Willamette River, A3 Channel, Amazon Diversion Channel, Willow Creek, Amazon Creek, and Fern Ridge Reservoir. They are water quality limited variously for bacteria, dissolved oxygen, turbidity, mercury, arsenic, lead, dichloroethylene, tetrachloroethylene, and temperature. Open waterways provide important water quality functions. Besides serving as drainage and flood control facilities, healthy, intact waterways intercept and slow down runoff, control erosion, filter pollutants, enhance infiltration and groundwater recharge, and moderate stream temperature. Waterways are also vulnerable to impact from certain uses and activities that, if conducted within and adjacent to open waterways, can lead to increased pollution in the downstream receiving waterways. Without protection for the area within and adjacent to these waterways, further degradation of downstream receiving water quality could result through increased erosion and sedimentation, increased pollutant loadings, and higher stream temperatures. Y:\CMO\2008 Council Agendas\M080514\S080514A.doc Drivers: Local Policy, State and Federal Regulations Local Adopted Policy Stormwater quality became a nationwide issue through the reauthorization of the federal Clean Water Act in 1987. Congress mandated that communities larger than 100,000 in population begin reducing the discharge of stormwater pollutants into the receiving waters of the Unites States “...to the maximum extent practicable.” The Comprehensive Stormwater Management Plan (CSWMP), adopted by City Council in 1993, forms the local policy framework for responding to these water quality mandates, as well as other community values associated with stormwater functions. CSWMP acknowledged the multiple benefits of waterways and the preference for incorporating their beneficial functions into the City’s stormwater system : Incorporate the beneficial functions (flood control, stormwater conveyance, water quality treatment) a of natural resources [waterways and wetlands] into the City storm drainage system. Statewide Planning Goal 6 - Air, Water, and Land Resources Quality Goal 6 is one of Oregon’s 19 statewide planning goals that provide the framework for land use planning within the state. Goal 6 requires local comprehensive plans and implementing measures to be consistent with state and federal regulations on matters such as water pollution. The proposed /WQ Water Quality Overlay Zone is responsive to Goal 6 with respect to the protection of water quality, consistent with federal Clean Water Act regulations. Federal and State Water Quality Regulations The Clean Water Act requires that states designate beneficial uses for each waterbody, and establish and enforce associated water quality standards that protect the most sensitive of beneficial uses. Attachment C is an Oregon Department of Environmental Quality (DEQ) fact sheet entitled Water Quality Standards that describes in plain language what water quality standards are, why they are needed, and how they are established. Section 303(d) of the Clean Water Act requires states to develop and maintain a list of all the water bodies within the state that do not meet the established water quality standards for their designated beneficial uses. DEQ’s 2004 “303(d) List” includes several local area waterways which do not meet state standards for various pollutants, including the Willamette River main stem, Amazon Creek, Willow Creek, the Amazon Diversion Channel, the A3 Channel, Fern Ridge Reservoir, and the Long Tom River. For waterways which do not meet water quality standards, states are required to establish Total Maximum Daily Loads (TMDLs), basically pollutant load allocations. The TMDL identified the level of pollutants that a water body can absorb and still meet water quality standards and then distributes it among the identified sources. TMDLs take into account pollution from all sources, including discharges from industry and sewage treatment facilities; runoff from urban areas, farms and forests, and natural sources. The Upper Willamette TMDL was issued by the DEQ in September 2006. The City of Eugene is considered as a “designated management agency” and as such was required to develop a plan to achieve the water quality improvement goals identified in the TMDL including reductions in turbidity, dissolved oxygen, mercury and temperature specifically. The City of Eugene submitted its draft TMDL Implementation Plan to the DEQ on April 1, 2008. The draft TMDL Implementation Plan (also provided in the Binder labeled: Water Quality Protected Waterways - Supplemental Information) a Comprehensive Stormwater Management Plan, Policy 1.1, p. 3-5. Y:\CMO\2008 Council Agendas\M080514\S080514A.doc included the consideration of waterway protections for water quality (this proposal), consistent with established policy and current work program priorities. Relationship of Water Quality Protected Waterways to Goal 5 - Open Spaces, Scenic and Historic Areas, and Natural Resources The current Water Quality Protected Waterways proposal is complimentary to the Goal 5 natural resource protections (including /WB Wetland Buffer and /WP Waterside Setback provisions in the Eugene wetlands plan area and the /WR Water Resources Conservation Overlay Zone adopted in November 2005). Parcels affected by the proposed /WQ Overlay Zone are those that contain or are adjacent to waterways of interest for water quality and are not otherwise protected including by Goal 5 natural resources protections. Where Goal 5 currently applies to a waterway, no additional regulation is applied through this proposal. This proposal recognizes that existing adopted regulations (Goal 5, WEW) go a long way towards protecting waterways. This proposal fills the gaps between waterways of significance to protect that are not protected. Once the Water Quality Waterways ordinance is adopted, the result will be a protected system of waterways that have a direct relationship with those that are water quality impaired. System Perspective The proposed Water Quality Protected Waterways proposal fills a gap in the City’s programs and ensures that the system of waterways that have a significant relationship to those that are currently water quality impaired, are protected. See the Overview Map (Attachment D) for the system perspective. The Overview Map shows the proposed Water Quality Waterways in the context of the entire set of waterways of significance to protect for water quality (those identified as "water quality impaired" pursuant to the Clean Water Act, waterways that are tributaries to water quality impaired waterways, and sensitive headwater streams), and in the context of existing protections. The blue symbol is used for the waterways identified for protection by the /WQ Overlay Zone. The proposed regulations protect current water quality functions within and adjacent to the identified waterways, and prevent further degradation of downstream water quality caused by uses and activities within and adjacent to the identified waterways. The proposal is one element of a multi-faceted program aimed at protecting and improving water quality, which also includes stream corridor acquisition, water quality capital improvement projects, maintenance of the public stormwater system (piped and open waterways) and water quality monitoring. The protections are in line with what is already established in most other large municipalities in the state, and some smaller jurisdictions (including the City of Springfield). Many other communities throughout the state and in our local area are considering waterway setbacks in partial response to the Upper Willamette Basin TMDLs. This is primarily a “water quality protection” proposal (as opposed to a water quality “enhancement” proposal). However, it does provide opportunity for improving and enhancing existing water quality function on public lands through capital projects such as the Metro Waterways Study. RELATED CITY POLICIES The Comprehensive Stormwater Management Plan (CSWMP), adopted by the City Council in 1993, provides direction to: Incorporate the beneficial functions (flood control, stormwater conveyance, water quality treatment) b of natural resources [waterways and wetlands] into the City storm drainage system. b Comprehensive Stormwater Management Plan, Policy 1.1, p. 3-5. Y:\CMO\2008 Council Agendas\M080514\S080514A.doc One of the Implementation Measures identified to carry out Policy 1.1 is to “Develop and apply c waterside protection ordinances.” COUNCIL OPTIONS None. The public hearing is scheduled for May 19, 2008. CITY MANAGER’S RECOMMENDATION The City Manager recommends that the council proceed to public hearing. SUGGESTED MOTION None. ATTACHMENTS A. Draft Ordinance and Exhibits Exhibit A. Water Quality Protected Waterways Map Exhibit B. List of Affected Tax Lots Inside City Limits Exhibit C. List of Affected Tax Lots Outside City Limits and Within UGB Exhibit D. Draft Legislative Findings B. Draft March 31, 2008 Planning Commission Meeting Minutes C. DEQ Fact Sheet: Water Quality Standards D. Proposed Water Quality Waterways Overview Map May 2008 FOR MORE INFORMATION Staff Contact: Therese Walch Telephone: 682-8647 Staff E-Mail: therese.walch@ci.eugene.or.us c CSWMP, Implementation Measure – Other Action, p. 3-5. 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W BEACON DR E BOND RD BEACON DR E SPRING CREEK ENID RD E AIRPORT RD WILKES DR CLEAR LAKE RD IRVING RD HUNSAKER LN SILVER CRESCENT DR MAXWELL RD HOWARD BARGER AVE RD HORN PARK ROYAL AVE HARLOW RD HARLOW RD ELMIRA RD I-105 Hwy 126 W 2ND AVE W 5TH AVE W 6TH AVE W 7TH AVE CROW RD W 11TH AVE W 13TH AVE E 13TH AVE W 18TH AVE W 18TH AVE W 18TH AVE E 19TH AVE E 24TH AVE W 27TH AVE W 29TH AVE E 30TH AVE CREST DR E 33RD AVE W 39TH AVE W 40TH AVE AVE Legend Water Quality Waterways Waterways identified pursuant to Eugene Code Section 9.4770, and consisting of the following: Tributary to a waterway listed under section 303(d) of the federal Clean Water Act Headwater stream Applicable Setbacks 00.51Mile Applicable Setback = 25 feet from top of high bank for a waterway that is tributary Top of High Bank Other Open Waterways to a waterway identified pursuant to section 303(d) of the federal Clean Water Act Map Data Sources: Centerline of Stream Applicable Setback = 40 feet from the waterway's centerline for Headwater Streams Open Waterways: City of Eugene Stormwater System Taxlots (4/14/08) Taxlots: Lane County Parcel File, as of April 14, 2008 o Eugene City Limits Water Quality Management Areas The /WQ Management Area is comprised of the waterway channel (the area between the top of high Area outside the Eugene bank on each side of the watery) and the applicable setback. 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