HomeMy WebLinkAboutOrdinance No. 20323 COUNCIL ORDINANCE NUMBER 20323
COUNCIL BILL NUMBER 4859
AN ORDINANCE ADOPTING THE POLICIES IN
THE NEW CENTRAL AREA TRANSPORTATION
STUDY AS A REFINEMENT OF THE EUGENE-
SPRINGFIELD METROPOLITAN AREA GENERAL
PLAN; REPEALING RESOLUTION NO. 4369 AND
THE CENTRAL EUGENE PARKING AND TRAFFIC
CIRCULATION PLAN ADOPTED THEREIN;
ADDING SECTION 9.9515 TO THE EUGENE
CODE, 1971; ADOPTING A SEVERABILITY
CLAUSE; AND PROVIDING AN EFFECTIVE DATE.
ADOPTED: May 24, 2004
PASSED: 710
REJECTED:
OPPOSED:
ABSENT: SOLOMON
EFFECTIVE DATE: 30 days from date of Mayor's signature
ORDINANCE NO. 20323
AN ORDINANCE ADOPTING THE POLICIES IN THE NEW
CENTRAL AREA TRANSPORTATION STUDY AS A
REFINEMENT OF THE EUGENE-SPRINGFIELD
METROPOLITAN AREA GENERAL PLAN; REPEALING
RESOLUTION NO. 4369 AND THE CENTRAL EUGENE
PARKING AND TRAFFIC CIRCULATION PLAN ADOPTED
THEREIN; ADDING SECTION 9.9515 TO THE EUGENE CODE,
1971; ADOPTING A SEVERABILITY CLAUSE; AND PROVIDING
AN EFFECTIVE DATE.
The City Council of the City of Eugene finds that:
A. The original Central Area Transportation Study (CATS) completed in 1987
was intended as a tool to help maintain and improve the transportation and parking
systems and preserve air quality within the CATS boundaries.
B. During the early 1990s the City Council directed an update of the original
CATS to expand the scope of the document to implement new strategies for alternative
modes of transportation by addressing the feasibility of a downtown shuttle system,
improved access to the CATS area for bicycles, changes in the parking codes, rates
and supplies, improvements in transit routes and service, and implementation of
employer-based trip reduction ordinances. After an extensive citizen participation
process, the updated CATS was adopted by Resolution No. 4369 in April 1993 as the
Central Area Parking and Traffic Circulation Plan.
C. Since adoption of the last CATS update in 1993, all of the policies, and the
majority of the suggested implementation strategies contained in the plan have been
implemented, and the CATS plan has been updated to reflect current needs and
priorities.
D. The updated CATS Plan will provide comprehensive long-range direction for
traffic circulation, parking and alternative transportation modes within the CATS
boundaries, and will function with the updated Eugene Downtown Plan as a refinement
to the Eugene-Springfield Metropolitan Area General Plan.
E. The 2003 CATS update is based on recommendations and proposals
generated by two Council-appointed committees, the Committee for Greater Downtown
Visioning, and the North End Scoping Group. Public comment was encouraged and
accepted at seven meetings held by the North End Scoping Group in the spring of 1999.
The Committee for Greater Downtown Visioning met eight times between April and
November 2000, including an all-day community workshop in June to solicit public
comment on the creation of an image-based vision for the Greater Downtown area.
Ordinance- 1
Nearly 200 citizens participated in that workshop. A public forum workshop open to all
members of the public was held in June 2002, with public comments from that workshop
conveyed to members of the expanded Planning Commission group that served as the
citizen advisory group for this project.
F. A public hearing on the 2003 CATS update was held by the Planning
Commission on July 15, 2003, and notice of the Planning Commission public hearing
was published in the Register Guard on June 25, 2003. The draft CATS update and
related materials have been made available on the internet through the City's web site.
G. Based on the public testimony received, and the recommendations of the
City's Planning Commission, and Planning Division staff, the City Council finds that the
2003 CATS Plan is consistent with the Eugene-Springfield Metropolitan Area General
Plan, other adopted City policies, and the Statewide Planning Goals. Resolution No.
4369, and the Central Eugene Parking and Traffic Circulation Plan adopted therein
should be repealed, and the CATS Plan Policies should be added to the Eugene Code,
1971 as Section 9.9515, as hereinafter set forth.
THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS:
Section 1. Resolution No. 4369, and the Central Eugene Parking and Traffic
Circulation Plan adopted therein, is hereby repealed, as of the effective date of this
Ordinance.
Section 2. Based on the above findings, and the legislative findings attached
hereto as Exhibit A, which are adopted in support of this Ordinance, the Policies set
forth in the Central Area Transportation Study (CATS) a copy of which is attached
hereto as Exhibit B are hereby adopted as a refinement of the Eugene-Springfield
Metropolitan Area General Plan for the CATS Plan Area.
Section 3. The implementation strategies in the CATS Plan are recognized as
ways in which to implement the policies, but they are not adopted as City policy.
Section 4. Section 9.9515 is hereby added to the Eugene Code, 1971, to provide:
9.9515 Central Area Transloortation Study (CATS) Policies.
(1) Street System.
(a) Promote the development of a transportation system within the
downtown area that supports the goals of the Downtown Plan,
enhances the livability of downtown, preserves the livability and
economic vitality of areas within, and directly adjacent to, the CATS
boundary, and provides for the safe and efficient movement of
motor vehicles, pedestrians, bicycles, and transit vehicles. (See
Appendix A, Map 2 for Proposed Street System Improvements.)
(Policy 1 )
Ordinance - 2
(b) Maintain or improve the operation of the street system for
pedestrians, bicycles, transit and automobiles. Balance the need
for bicycle lanes on downtown streets with the need for on-street
parking and transit facilities. (Policy 2)
(c) Use Transportation System Development Charges (SDC) to help
compensate for the effect of growth on the need for alternative
transportation systems. (Policy 3)
(2) Pedestrian System.
(a) Improve the pedestrian system in the downtown area to encourage
walking as a primary means of transportation within downtown.
(See Appendix A, Map 3 for Proposed Pedestrian System
Improvements.) (Policy 4)
(b) Encourage and promote the creation of"great streets" within the
downtown area that stimulate pedestrian activity while allowing for
bicycles and slow-moving automobile traffic. (Policy 5)
(3) Bicycle Facilities. Improve the safety and efficiency of existing
bikeways in the downtown area. Improve bicycle circulation within the
downtown area and improve access to existing and planned routes
extending outside of the downtown area. (See Appendix A, Map 4 for
Proposed Bicycle Facility Improvements) (Policy 6)
(4) Transit System. Support a frequent transit-based shuttle service in the
greater downtown area to link major employment and activity centers
and to provide an attractive, energy-efficient, Iow or no cost,
transportation alternative for those who live, work or shop within the
greater downtown area. (See Appendix A, Map 5 for Transit
Improvements Discussion Map.) (Policy 7)
(5) Vehicle Parking.
(a) Support intensive development in the downtown area by balancing
new parking supply with specific area demands and ensure an
adequate supply of parking is available downtown to meet the
needs of residents, workers and customers of downtown facilities.
(Policy 8)
(b) Make parking downtown convenient, affordable, safe and easy to
use. (Policy 9)
(6) Transportation Demand Management Program. Promote walking,
bicycling, carpooling, and riding the bus through employer-based
programs. (Policy 10)
(7) University of Oregon Campus Area. Support the transportation
policies contained in the 1991 University of Oregon Long range Campus
Development Plan. (Policy 11)
Section 5. The City Recorder, at the request of, or with the concurrence of the
City Attorney, is authorized to administratively correct any reference errors contained
herein or in other provisions of the Eugene Code, 1971, to the provisions added,
amended or repealed herein.
Ordinance - 3
Section 6. If any section, subsection, sentence, clause, phrase or portion of this
Ordinance is for any reason held invalid or unconstitutional by a court of competent
jurisdiction, such portion shall be deemed a separate, distinct and independent
provision and such holding shall not affect the validity of the remaining portions hereof.
Section 7. Notwithstanding the effective date of ordinances as provided in the
Eugene Charter of 2002, this Ordinance shall become effective 30 days from the date of
its passage by the City Council and approval by the Mayor, or upon the date of its
acknowledgment as provided by ORS 197.625, whichever date is later.
Passed by the City Council this Approved by the Mayor this
24th day of May, 2004 ~%~ay of May, 2004
City' R~corder - ~/~'w'~ '~ 'J~a~
Ordinance - 4
Exhibit A
Preliminary Findings of Consistency of the Central Area Transportation
Study Amendments with Refinement Plan Amendment Criteria
Applicable Criteria for Refinement Plan Amendment:
The Eugene Planning Commission and City Council will apply the following criteria bom
Eugene Code Section 9.8424 to the proposed refinement plan amendments:
(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.
(2) The refinement plan amendment addresses one or more of the following: (a) An error in the publication of the refinement plan.
(b) New inventory material which relates to a statewide planning goal.
(c) New or amended community policies.
(d) New or amended provisions in a federal law or regulation, state statutes, state
regulation, statewide planning goal, or state agency land use plan.
(e) A change of circumstances in a substantial manner that was not anticipated at the
time the refinement plan was adopted.
A. Consistency with Statewide Plannin[~ 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 2003 CATS update is based on a set of proposals and recommendations that were
generated at various meetings of two Council-appointed committees: the Committee for
Greater Downtown Visioning and the North End Scoping Group. The North End
Scoping Group met seven times in the spring of 1999 in open meetings in which public
comment was encouraged and accepted. The Committee for Greater Downtown
Visioning met eight times between April and November 2000. In June the Committee
sponsored an all-day community workshop to solicit public comment on the creation of
an image-based vision for the Greater Downtown area. Nearly 200 citizens participated
in that workshop. Other outreach efforts for the visioning work included two "virtual
galleries" during the First Friday Art Walk and a display at the Eugene Celebration.
Exhibit A - Findings to CATS Ordinance - 1
The initiation of the CATS update process was marked by a public forum in June, 2002.
The workshop was open to all members of the community; public comments from the
workshop were conveyed to members of the expanded Planning Commission group that
serves as the citizen advisory committee for this project.
Finally, the CATS update is subject to a series of public hearings by the Planning
Commission and City Council prior to adoption. The first hearing before the Planning
Commission is scheduled for July 15, 2003.
The process for adopting these amendments complied with Goal 1 since it complied with
and surpassed the requirements of the City's citizen involvement program.
Statewide Planning Goal 2 - Land Use Planning
To establish a land use planning process and policy framework as a basis for all decisions and
actions related to use of land and to assure an adequate factual basis for such decisions and
actions.
The record shows that there is an adequate factual base for the adoption of this plan.
The Goal 2 coordination requirement is met when the City engages in an exchange, or
invites such an exchange, between the City and any affected governmental unit and when
the City uses the information obtained in the exchange to balance the needs of the
citizens. To comply with the Goal 2 coordination requirement, the City engaged in an
exchange about the Plan with ali of the affected governmental units.
There are no Goal 2 Exceptions required for the adoption of this plan. Therefore, the
amendments are consistent with Goal 2.
Statewide Planning Goal 3 - Agricultural Lands
To preserve and maintain agricultural land.
The plan amendment affects land within the central city and does not affect any land
designated for agricultural use. Therefore, Goal 3 is not applicable or relevant to the
amendment.
Statewide Planning Goal 4 - Forest Lands
To conserve forest lands.
The plan amendment affects land within the central city and does not affect any land
designated for forest use. Therefore, Goal 4 is not applicable or relevant to the
amendment.
Exhibit A - Findings to CATS Ordinance - 2
Statewide Planning Goal 5 - Open Spaces, Scenic and Historic Areas, and Natural Resources.
To conserve open space and protect natural and scenic resources.
The plan does not create or amend the city's list of Goal 5 resources, does not amend a
code provision adopted in order to protect a significant Goal 5 resource or to address
specific requirements of Goal 5, does not allow new uses that could be conflicting uses
with a significant Goal 5 resource site and does not amend the acknowledged UGB.
Therefore, Goal 5 does not apply.
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.
The plan amendment has no affect on water or land resources of the state.
Air quality conformity determination issues are required to be addressed by TransPlan;
those determinations are made by the Lane Council of Governments.
No substantive changes to the transportation system are proposed in the CATS update
that would require an air quality conformity determination. While CATS does propose
conversion of some streets from one-way to two-way operation, the operational effects of
those changes are within the limits for congestion allowed by TransPlan. Based upon the
relatively minor transportation changes and a relatively large margin of safety in the
region's emissions budget, the CATS update would not affect the region's ability to
conform with federal air quality standards.
The 2003 CATS update does not define specific locations for construction of future
parking structures although it does include an analysis of parking supply relative to
parking demand. Since CATS is not definitive about parking, it can not be used as a
parking and circulation plan, as were previous versions of the document, for the
purposes of air quality conformity determination. Therefore, Goal 6 is not applicable to
this amendment.
Statewide Planning Goal 7 - Areas Subject to Natural Disasters and Hazards
To protect life and property from natural disasters and hazards.
The plan amendment has no affect on areas that are subject to natural disasters or
hazards or on local, state or federal government plans to protect life and property from
those threats. Therefore, Goal 7 is not applicable to the amendment.
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.
Exhibit A - Findings to CATS Ordinance - 3
The proposed action does not affect any inventoried or designated recreation areas or
facilities. The further expansion or improvement to bicycle facilities within the CATS
area work to satisfy some recreational demand for those facilities. Therefore, Goal 8 is
not applicable to the amendment.
Statewide Planning Goal 9 - Economic Development
To satisfy adequate oppommities throughout the state for a variety of economic activities vital to
the health, welfare, and prosperity of Oregon's citizens.
The plan has no affect on Metro Plan designations for commercial uses. The underlying
Metro Plan designation and land currently designated for commercial development will
continue to be designated for commercial development. Therefore, the amendments are
consistent with Goal 9.
Statewide Planning Goal 10 - Housing
To provide for the housing needs of citizens of the state.
The plan has no affect on Metro Plan designations for housing or any other land use.
The underlying Metro Plan designation and land currently designated for housing will
continue to be designated for housing. Therefore, the amendments are consistent with
Goal 10.
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.
The plan amendments do not effect the City's provision of public facilities and services.
Therefore, Goal 11 does not apply.
Statewide Planning Goal 12 - Transportation
To provide and encourage a safe, convenient and economic transportation system.
The policies and proposals contained in the plan are consistent with the City's adopted
TSP, TransPlan. TransPlan has been found to be consistent with Statewide Planning
goal 12, Transportation. Therefore, the CATS Update is consistent with Goal 12.
OAR 660-012-0060, Plan and Land Use Regulation Amendments of the Transportation
Planning Rule (TPR) discusses requirements for amendments to plans "which
significantly affect a transportation facility." This section of the TPR goes on to state:
A plan or land use regulation amendment significantly affect a transportation
facility if it:
(a) Changes the functional classification of an existing or planned
Exhibit A - Findings to CATS Ordinance - 4
transportation facility;
None of the policies or proposals in CATS would change the functional
classification of an existing or planned transportation facility.
(b) Changes standards implementing a functional classification system;
None of the policies or proposals in CATS would change standards implementing
the functional classification system.
(c) Allows types or levels of land uses which would result in levels of travel
or access which are inconsistent with the functional classification of a
transportation facility; or
None of the policies or proposals in CATS would result in levels of travel or
access which are inconsistent with the functional classification of a
transportation facility.
(d) Would reduce the performance standards of the facility below the
minimum acceptable level identified in the TSP.
The TSP (TransPlan) identifies the minimum acceptable level of service as
"...Level of Service E within Eugene's Central Area Transportation Study (CATS)
area..." (TransPlan policy TSI Roadway # 2, Motor Vehicle Level of Service
(LOS)). None of the policies or proposals in CATS would reduce this
performance standard for any roadway within the CATS area.
For these reasons, the amendment does not significantly affect a transportation
facility.
Statewide Planning Goal 13 - Energy Conservation
To conserve energy
Goal 13 does not apply to the proposed action.
Statewide Planning Goal 14 - Urbanization
To provide for the orderly and efficient transition from rural to urban land use.
The plan area is totally within the city limits; the urbanization goal does not apply to the
proposal.
Statewide Planning Goal 15 - Willamette River Greenway
To protect, conserve, enhance and maintain the natural, scenic, historical, agricultural, economic,
Exhibit A - Findings to CATS Ordinance - 5
and recreational qualities of lands along the Willamette River as the Willamette River Greenway.
The amendments to not contain any changes that affect the regulation of areas within the
Willamette River Greenway. Therefore, Goal 15 does not apply.
Statewide Planning Goal 16 ~ Estuarian Resources
This statewide planning goal does not apply to the area under consideration
Statewide Planning Goal 17 - Coastal Shoreland
This statewide planning goal does not apply to the area under consideration
Statewide Planning Goal 18 - Beaches and Dunes
This statewide planning goal does not apply to the area under consideration
Statewide Planning Goal - Ocean Resources
This statewide planning goal does not apply to the area under consideration
B.~. Consistencv with applicable provisions of the Metro Plan
Environmental Design Element (E)
E-9 Refinement Plans shall bc developed to address compatibility of land uses, safety, crime
prevention, and visual impact along arterial and collector streets, within mixed-usc areas.
During the interim period before the adoption of a refinement plan, these considerations
shall be addressed by cities in approving land usc applications in mixed use areas by
requiring conditions of approval where necessary.
The proposed amendment includes proposals to implement the "great streets" concept to
address compatibility of land uses and to functionally and visually integrate
transportation and land use functions along selected corridors within the downtown
area.
Transportation Element (F)
F-2 Support application of the nodal development strategy in designated areas through
information, technical assistance, or incentives.
Exhibit A - Findings to CATS Ordinance - 6
The proposed amendment supports the application of the nodal development strategy by
providing information and technical assistance on transportation planning initiatives that
seek to increase the use of alternative modes of transportation, reduce per-person vehicle
miles of travel, and reduce demand for automobile-related transportation facilities.
F-3 Require improvements that encourage transit, bicycles, and pedestrians in new
commercial, public, mixed-use, and multi-family residential development.
The proposed amendments include proposals to (1) enhance the frequency of downtown
area shuttle service, develop specific transit routing options for future Shuttle or Bus
Rapid Transit service within the downtown area and nearby redevelopment areas; (2)
expand bicycle routes to various downtown streets and improve existing bicycle facilities
by correcting various deficiencies on routes throughout the CATS area; and (3) adding
sidewalks to one segment of Franklin Boulevard that currently has no sidewalks; creating
a new design standard for theplacement ofverticalpoles, signal boxes, and street
furniture, generally improving conditions for pedestrians by evaluating and improving
pedestrian crossings that are unsafe or difficult to use. The proposed amendments will
affect existing and new facilities equally.
F-8 Implement TDM strategies to manage demand at congested locations.
Proposed policies in the draft CA TS support implementation of various transportation
demand programs.
F-10 Protect and manage existing and future transportation infrastructure.
The plan promotes numerous initiatives to better manage the existing and future
transportation infrastructure. Those initiatives includes proposals to (1) convert
segments of six downtown streets from one-way to two way operation; (2) reduce
operational conflicts at numerous intersections within the CATS area; (3) develop a
comprehensive multi-modal transportation network within the future Federal Courthouse
area; (4) adopt new standards for the placement of verticalpoles, signal boxes, and
street furniture within sidewalk areas; (5) add bicycle parking in various locations
throughout downtown; (6) install bicycle lanes on three downtown street segments; (7)
add more long-term bicycle parking within the downtown; (8) reconfigure bicycle lanes
on several downtown streets to improve safety and remove existing bike/auto and
bike/pedestrian conflicts; (9) continue implementation of the long-term strategy to
replace downtown surface parking by encouraging redevelopment of those sites; and (10)
develop more on-street parking in the downtown's high demand areas.
Exhibit A - Findings to CATS Ordinance - 7
F-13 Support transportation strategies that enhance neighborhood livability.
The plan amendments, in general, enhance neighborhood livability by promoting changes
that will improve the overall transportation system in downtown by increasing
accessibility for all transportation modes, removing barriers and conflicts for pedestrians
and bicyclists, and improving the operational efficiency of all modes. Proposals in the
plan to implement the Great Streets concept are explicitly targeted at enhancing
neighborhood livability by providing better integration of land use and transportation
facilities, by improving the appearance of downtown area streets, and by calming traffic
on streets selected for Great Street improvements.
F-14 Address the mobility and safety needs of motorists, transit users, bicyclists, pedestrians,
and the needs of emergency vehicles when planning and constructing roadway system
improvements.
The plan amendments include proposals for numerous roadway system improvements,
including construction of new facilities (relocation of 6th Street in the vicinity of the
proposed new Federal Courthouse), reconstruction of existing facilities (Great Streets),
and a variety of minor changes, primarily at intersections, to improve motor vehicle,
pedestrian, transit, and bicycle operations.
F-18 Improve transit service and facilities to increase the system's accessibility, attractiveness,
and convenience for all users, including the transportation disadvantaged population.
The plan amendment includes proposals to enhance downtown shuttle service, plan for
future Shuttle or Bus Rapid Transit service within the future Federal Courthouse site,
and plan for the potential of a network of CATS area streets providing future Bus Rapid
Transit connections to outlying neighborhoods.
F-19 Establish a BRT system composed of frequent, fast transit service along major corridors
and neighborhood feeder service that connects with the corridor service and with activity
centers, if the system is shown to increase transit mode split along BRT corridors, if local
governments demonstrate support, and if financing for the system is feasible.
The plan amendments support continued planning of the Bus Rapid Transit system. The
plan includes a "Preliminary Transit Routing Discussion Map" which identifies CATS
area streets that are likely to be proposed, in future phases of the BRT program, as BRT
corridors.
F-22 Construct and improve the region's bikeway system and provide bicycle system support
facilities for both new development and redevelopment/expansion.
Exhibit A - Findings to CATS Ordinance - 8
The plan amendments include numerous proposals to construct new and improve existing
bicycle facilities within the CATS area. The plan also includes a proposal to add
bicycle parking in the downtown area.
F-27 Provide for a continuous pedestrian network with reasonably direct travel routes between
destination points.
The plan amendments include proposals to construct new sidewalks along portions of
Franklin Boulevard and Kincaid Street. With the construction of those sidewalk
segments, a continuous pedestrian network will exist within the whole CATS planning
area.
F-28 Construct sidewalks along urban area arterial and collector roadways, except freeways.
As described above, the plan amendments propose construction of new sidewalks along
portions of Franklin Boulevard and Kincaid Street.
C. Consistency with remaininE portions of the refinement plan.
Adoption of the plan will update and replace the Central Area Transportation Study that
was adopted in 1993. There is no issue with respect to maintaining consistency with
"remaining portions" of the plan.
D. Other Criteria
The Eugene Planning Commission and City Council will apply the following criteria from
Eugene Code Section 9.8424 to the proposed refinement plan amendments:
(2) The refinement plan amendment addresses one or more of the following: (a) An error in the publication of the refinement plan.
(b) New inventory material which relates to a statewide planning goal.
(c) New or amended community policies.
(d) New or amended provisions in a federal law or regulation, state statutes, state
regulation, statewide planning goal, or state agency land use plan.
(e) A change of circumstances in a substantial manner that was not anticipated at the
time the refinement plan was adopted
Since CATS was adopted in 1993, several long-range planning activities have been
completed for the downtown area. Those efforts included the Southbank Conceptual
Study (1994), the North End Scoping Group report (1999), The Downtown Visioning
project (2000) and the Courthouse District Concept Plan (2002). While none of these
reports were adopted by the Council, they resulted in a cluster of recommendations
affecting the redevelopment and general improvement of the downtown area. The City
Exhibit A - Findings to CATS Ordinance - 9
Council has directed that the existing Downtown Plan be updated to address and reflect
the recommendations contained in those reports. Collectively, those recommendations
result in a substantial "change of circumstances" that was not anticipated at the time the
refinement plan was adopted.
Exhibit A - Findings to CATS Ordinance - 10