HomeMy WebLinkAboutCCAgenda-3/08/04WSCity Council
City of Eugene
777 Pearl Street, Room 105
Eugene, Oregon 97401-2793
(541) 682-5010
(541) 682-5414 FAX
(541) 682-5045 TTY
www. ci.eugene.or, us
EUGENE CITY COUNCIL AGENDA
March 8, 2004
5:30 p.m.
CITY COUNCIL WORK SESSION
McNutt Room, City Hall
7:30 p.m.
CITY COUNCIL MEETING and
MEETING OF THE EUGENE URBAN RENEWAL AGENCY
Council Chamber, City Hall
777 Pearl Street
Eugene, Oregon 97401
Meeting of March 8, 2004;
His Honor James D. Torrey Presiding.
Councilors
Bonny Bettman, President
David Kelly
Nancy Nathanson
Jennifer Solomon
George Poling, Vice President
Scott Meisner
Gary Pap6
Betty Taylor
5:30 P.M.
CITY COUNCIL WORK SESSION
McNutt Room, City Hall
5:30 p.m.
A. ITEMS FROM MAYOR, COUNCIL AND CITY
MANAGER
5:50 p.m.* B.
ACTION:
Approval of a Motion to Change the Date to Consider
Adopting an Ordinance that Amends the Riverfront
Research Park Urban Renewal District Plan
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5:55 p.m.*
6:40 p.m.*
C. WORK SESSION:
Amendments to the Eugene Code Pertaining to the
Procedures and Assessments of Public Improvements
D. WORK SESSION:
Central Area Transportation Study
* Time approximate
7:30 P.M.
CITY COUNCIL MEETING and
MEETING OF THE EUGENE URBAN RENEWAL AGENCY
City Council Chamber, City Hall
1. PUBLIC FORUM
o
CONSENT CALENDAR
A. Approval of City Council Minutes:
- January 26, 2004, Work Session
- February 9, 2004, City Council Meeting
- February 11, 2004, Work Session
B. Approval of Tentative Working Agenda
C. Approval of Resolution 4787 of the City of Eugene, Oregon
Authorizing the Issuance and Sale of the City's General Obligation
Parks and Open Spaces Bonds in a Principal Amount of Not More
Than $6,305,000
D. Approval of Additional Community Development Block Grant Funds
for Site Acquisition and Business Development Fund
o
PUBLIC HEARING AND ACTION:
Resolution 4788 Adopting a Supplemental Budget; Making
Appropriations for the City of Eugene for the Fiscal Year Beginning July
1, 2003 and Ending June 30, 2004
o
PUBLIC HEARING AND ACTION:
Resolution 1029 Adopting a Supplemental Budget; Making
Appropriations for the Urban Renewal Agency of Eugene for the Fiscal
Year Beginning July 1, 2003, and Ending June 30, 2004
o
ACTION:
Approval, Of Findings, And Recommendation From The Hearings
Official and Adoption of an Ordinance Levying Assessments for Paving,
Curbs, Gutters, Sidewalk, Median, Parking Bays, Street Lights, Street
Trees, and Storm Water Drainage System on Lone Oak Drive From
Division Avenue to 250 Feet East of Lone Oak Way (Contract #2004-08)
(Job #4058)
Eugene City Council Agenda: March 8, 2004 L:\CMO\2004 Council Agendas\M040308\A040308P.doc
o
ACTION:
East Campus Plan Amendments
An Ordinance Amending the Eugene-Springfield Metropolitan Area
General Plan Diagram and the Fairmount/University of Oregon Special
Area Study Diagram and Text; Amending Sections 9.8865 and 9.9570 of
the Eugene Code 1971; Adding New Sections 9.4200, 9.4205, 9.4210, 9.4215,
and 9.4220 to that Code; Adopting a Severability Clause; and Providing an
Effective Date
The Eugene City Council welcomes your interest in these agenda items. This meeting location is wheelchair-
accessible. For the hearing impaired, FM assistive-listening devices are available or an interpreter can be provided
with 48 hours' notice prior to the meeting. Spanish-language interpretation will also be provided with 48 hours' notice.
To arrange for these services, contact the receptionist at 682-5010. Telecommunications device for the deaf assistance
is available at 682-5045. All council meetings are telecast live on Metro Television, Comcast channel 21, and
rebroadcast later in the week.
E1 Consejo de la Ciudad de Eugene aprecia su inter6s en estos asuntos de la agenda. E1 sitio de la reuni6n tiene acceso
para sillas de ruedas. Hay accesorios disponibles para personas con afecciones del oido, o se les puede proveer un
interprete avisando con 48 horas de anticipaci6n. Tambi6n se provee el servicio de interpretes en idioma espafiol
avisando con 48 horas de anticipaci6n. Para reservar estos servicios llame a la recepcionista al 682-5010. Hay
aparatos de telecomunicaci6n disponibles para ayudar a personas con obstrucciones del oido permanentes al tel6fono
682-5045. Todas las reumones del consejo estan gravados en vivo en Metro Television, canal 21 de Comcast y
despues en la semana se pasan de nuevo.
FOR MORE INFORMATION CONTACT THE COUNCIL COORDINATOR AT (541)682-5010.
VISIT US ON THE WORLD WIDE WEB AT ~ CI. EUGENE. OR. US
Eugene City Council Agenda: March 8, 2004 L:\CMO\2004 Council Agendas\M040308\A040308P.doc
EUGENE CITY COUNCIL
AGENDA ITEM SUMMARY
Action: Approval of a Motion to Change the Date to Consider Adopting an Ordinance
that Amends the Riverfront Research Park Urban Renewal District Plan
Meeting Date: March 8, 2004
Department: Planning and Development
www. cl. eugene, or. us
Agenda Item Number: B
Staff Contact: Richie Weinman
Contact Telephone Number: 682-5533
AGENDA ITEM SUMMARY
This reschedules final action to amend the Riverfront Urban Renewal Plan to March 10, 2004.
BACKGROUND
On February 25, 2004, the council considered amendments to the Riverfront Research Park Urban
Renewal Plan for final action. The council tabled final action to a date certain: March 8, 2004. At the
request of Councilor Taylor, who may be out of town, approval of this motion will move the agenda
item to March 10, 2004.
Timing
Adoption of the ordinance was scheduled for March 8, 2004, and the council is asked to reschedule the
action to March 10, 2004.
SUGGESTED MOTION
Move to amend the council motion that tabled action on amendments to the Riverfront Research Park
Urban Renewal Plan to March 8, 2004, and change the date to March 10, 2004.
ATTACHMENTS
None.
FOR MORE INFORMATION
Staff Contact: Richie Weinman, Community Development Division
Telephone: 682-5533
Staff E-Mail: richie.d.weinman~ci.eugene.or.us
L:\CMO\2004 Council Agendas\M040308\S040308B.doc
EUGENE CITY COUNCIL
AGENDA ITEM SUMMARY
Work Session: Amendments to the Eugene Code Pertaining to the Procedures and
Assessments of Public Improvements
Meeting Date: March 8, 2004
Department: Public Works
www. cl. eugene, or. us
Agenda Item Number: C
Staff Contact: Mark Schoening
Contact Telephone Number: 682-5243
AGENDA ITEM SUMMARY
This is a work session on proposed amendments to the Eugene Code pertaining to the procedures and
assessments of public improvements. Staff has evaluated alternative apportionment methods for alley
improvements considering both the current West University Neighborhood (WUN) alley improvement
project and potential alley improvement projects in neighborhoods throughout the City (see Attachment
A). The council is requested to pass a motion directing staff to prepare an ordinance amending the
Eugene Code pertaining to the procedures and assessments for public improvements to change the
method of apportioning assessments for alley improvements to a method that is based equally on property
area and alley frontage and to assess all costs associated with alley improvements. A public hearing is
tentatively scheduled for April 12, 2004.
BACKGROUND
Council Action History
The City Council held a work session on November 24, 2003, to review a report from the City Engineer
covering the feasibility and estimated cost to improve the unimproved alleys, funding sources, range of
estimated assessments, assessment code issues, design standards, timing and a proposed implementation
plan. The City Council directed the City Manager to proceed with a project to improve the unimproved
alleys in the WUN, consistent with the WUN Task Force Final Report and to pursue potential additional
funding sources to replace the Community Development Block Grant (CDBG) funds. Also, at this
meeting staff identified issues with the current method of apportionment of costs for alley improvements
and proposed future consideration by the council of amendments to the Eugene Code regarding the
apportionment method. In addition, the council requested that staff investigate the feasibility of
amending the Eugene Code to assess all costs associated with alley improvements.
Policy Issues
The two policy issues related to the Eugene Code on apportioning assessments for alley improvements
include:
1. Should the existing method of apportioning assessments be amended?
2. Should all of the costs associated with an alley improvement be assessed to the benefitting properties?
Council Goals
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FAIR, STABLE AND ADEQUATE FINANCIAL RESOURCES - A local government whose ongoing
financial resources are based on a fair and equitable system of taxation and other revenue sources and
are adequate to maintain and deliver municipal services. Financing of alley improvements through the
formation of local improvement districts fairly and equitably allocates the cost of the improvements to the
benefitting properties.
Financial and/or Resource Considerations
The Eugene Code pertaining to the procedures and assessments for public improvements states that the
City shall be responsible for the cost of improvements at the intersection of two alleys or at the
intersection of an alley with a street. Staff evaluated both alternative eligible funding sources for the
City's share of alley improvement costs and amending the Eugene Code to assess all costs associated
with alley improvements (see Attachment B).
Timing
Per the Municipal Charter, ordinances amending the sections of the Eugene Code pertaining to the
procedures and assessments for public improvements are effective six months after City Council
adoption. The council initiated the West University Neighborhood (WUN) alley improvement project at
the January 12, 2004, City Council meeting. This action allowed staff to proceed with the public
outreach, design and bidding of the improvements. It is anticipated that the council will adopt a
resolution forming a local improvement district (LID) for the WUN alley improvements in early April
2005. This will allow construction of the improvements to occur in the summer of 2005. Amendments
to the Eugene Code must be adopted by early November 2004 to be applicable to the WUN LID. More
importantly, staff has initiated a public communications plan for the WUN alley improvement project and
information on individual assessments is likely to be the most frequently asked question. Therefore, the
timely adoption of amendments to the Eugene Code will ensure a successful public communications plan.
OPTIONS
The council has several options in providing direction to staff including:
1. Rely on the existing method of apportioning assessments for alley improvements outlined in the
Eugene Code and to pursue CDBG funding for the City's share of the WUN alley improvement
project.
2. Proceed with amendments to the Eugene Code to change the method of apportioning assessments for
alley improvements and to assess all costs associated with alley improvements.
3. Evaluate additional methods of apportioning assessments for alley improvements.
STAFF RECOMMENDATION
Staff recommends that the existing sections of the Eugene Code pertaining to the procedures and
assessments for public improvements be amended to:
1. Change the method of apportioning assessments for alley improvements to a method that is based
equally on property area and alley frontage; and
2. Assess all costs associated with alley improvements.
SUGGESTED MOTION
Move to direct staff to prepare an ordinance amending the Eugene Code pertaining to the procedures and
L:\CMO\2004 Council Agendas\M040308\S040308C.wpd
assessments for public improvements to:
1. Change the method of apportioning assessments for alley improvements to a method that is based
equally on property area and alley frontage; and
2. Assess all costs associated with alley improvements.
ATTACHMENTS
A. Memo to the Mayor and Council on Alternative Alley Apportionment Methods
B. Memo to the Mayor and Council on Alternative Funding Sources for the City's Share of Alley
Improvement Costs
FOR MORE INFORMATION
Staff Contact: Mark Schoening
Telephone: 682-5243
Staff E-Mail: Mark. A. Schoening~ci. eugene, or.us
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ATTACHMENT A
Public Works
Engineering
MEMORANDUM
City of Eugene
858 PearlStreet
Eugene, Oregon
(541) 682-5291
(541) 682-5032 FAX
Date:
To:
From:
February 28, 2004
Mayor Torrey and City Council
Mark Schoening, 682-5243
Subject: ALTERNATIVE ALLEY ASSESSMENT APPORTIONMENT METHODS
State law requires that assessments be based upon the special and peculiar benefits accruing to
a property from an improvement project. The challenge is to objectively and fairly measure
benefits in such a way that a mathematical formula can be developed to apportion the costs of
an improvement to the benefiting properties. It is a common practice to attribute the benefits
accruing to a property to the physical attributes of the property such as area or frontage. It is
less common to attribute the benefits to the use or zoning of the property because of the
difficulty in objectively and fairly measuring the benefits. Land use and zoning do not
translate easily into numerical factors that can be used in an assessment formula and, because
zoning and land uses may change, they are not related directly to the 'special benefit' that the
improvement confers on the parcel to be assessed. In addition, for purposes of measuring
benefit from the improvement, land use and zoning are not good measures, because more
intensive uses of the parcel do not necessarily make greater use of the alley improvement.
The Municipal Charter states that ordinances amending the sections of the Eugene Code
pertaining to the procedures and assessments for public improvements are not in effect until
six months after Council adoption. This precludes developing an apportionment method
unique to each local improvement district, a practice that is common among other
municipalities. With this constraint, the past practice has been to try to develop code
provisions to anticipate every possible situation that may arise. This has resulted in complex
apportionment methods that are difficult to convey to property owners and difficult and costly
to implement.
In Eugene, alleys have historically been improved and assessed alley by alley. The West
University Neighborhood alley improvement project will improve all of the unimproved
alleys in the neighborhood as one construction and assessment project. The existing
apportionment method for alleys requires that alley assessments be calculated for each alley
segment. An alley segment is defined as the section of alley between intersecting alleys or
streets.
Five different methods, including the existing method of apportioning costs were evaluated.
Each method is described in the following paragraphs along with some of the pros and cons of
each method:
1. Existing Apportionment Method - Using this method, one half of the costs are
apportioned on the basis of a weighted alley frontage and one half of the costs are apportioned
on the basis of a weighted property area. The alley frontage is weighted by multiplying the
alley frontage by a land use factor based upon the existing use of the property. The land use
factor ranges from 1 (single family home) to 10 (commercial). The property area is weighted
by multiplying the area of the property within 160 feet of the property and at right angles to
the alley frontage by land use factors based upon the zoning of the property. The land use
factors are the same as used in weighting the alley frontage. Alley improvement costs are
apportioned for each individual alley segment.
The effect of this method is that properties with different zoning and uses, but with identical
areas and alley frontages could have assessments that are an order of magnitude in difference.
For vacant lots the land use factors are based upon the zoning for both the alley frontage and
property area. Finally, only measuring the area of property at right angles to the alley
frontage results in only measures the area of the "pole" of a flag lot.
This method of apportionment was implemented in 1973 after two years of study by a
committee appointed by the City Council.
2. Existing Apportionment Method With Modified Land Use Factors - This method
varies from the existing method in that the land use factors are correlated to vehicle trip
generation rates for difference land uses. Similar land uses are grouped into four broad
categories and the land use factors range from 1 to 7. The land use categories (and their
factors) include single family residential (1); multi-family (0.5 per unit); office, industrial and
institutional (1); and commercial (7).
3. Land Use Based Apportionment Method - This method is similar to the transportation
system development charge methodology. However, rather than using vehicle trip generation
rates for each type of land use, similar land uses were group into four broad categories similar
to the previous method. Residential land uses were multiplied by the number of dwelling
units and commercial, industrial and institutional land uses were multiplied by the total gross
square footage of the structure. Undeveloped properties were apportioned costs assuming the
use of the property would be similar to properties with the same zoning and physical
characteristics.
4. Alley Frontage Based Apportionment Method - Using this method the costs are
apportioned to each property based upon the alley frontage of the property. This method is
similar to the method used for streets and is commonly used by other municipalities.
Although very simple, this method does not address flag lots equitably. A flag lot with a large
area could have a relatively small assessment due to the small amount of alley frontage. This
method of apportionment was in use from 1926 to 1973. It is probable that the majority of
improved alleys in Eugene were constructed during this time frame.
5. Alley Frontage and Property Area Based Apportionment Method - Using this method
one half of the costs would be apportioned based upon the alley frontage of a property and one
half of the costs would be apportioned based upon the area of a property. This method is also
commonly used by other municipalities.
A sample of seven alleys in the West University Neighborhood consisting of varying land
uses and property areas and frontages was selected to determine the assessments for individual
properties using the five different apportionment methods. The range of assessments for
different land uses and for each method of apportionment is summarized in the following
table:
Range of Assessments for Individual Properties for Alternative Apportionment Methods
Land Use Existing Existing Land Use Alley Alley Frontage
Method Method Method Frontage and Property
Modified Method Area Method
Single Family $1,100 - $1,000 - $700 - $4,000 - $3,000 -
Residential $4,100 $4,300 $1,000 $9,000 $8,500
Multi-Family $1,900 - $3,200 - $1,400 - $3,300 - $3,800 -
Residential $8,500 $24,000 $22,700 $11,600 $13,600
Commercial $4,800 - $4,900 - $6,900 - $5,900 - $5,200 -
$28,100 $25,300 $91,400 $17,300 $20,300
Office, $14,700 - $2,800 - $1,200 - $4,000 - $4,500 -
Institutional & $19,500 $4,100 $16,500 $21,600 $24,400
Industrial
In developing a recommendation to implement a new method of apportioning costs for alley
improvements, a set of criteria were developed and applied to each method evaluated. The
apportionment method for alleys should be:
1. Simple, fair and equitable.
2. Applicable to the West University Neighborhood and all areas of the City with
unimproved alleys.
3. Based upon the special and peculiar benefits accruing to the property (ORS
223.389).
It is believed that all of the methods considered would meet the requirements of State law in
being based upon the special and peculiar benefits accruing to the property. In addition, all of
the methods would be applicable to both the West University Neighborhood and all areas of
the City with unimproved alleys.
As stated earlier in this memo, it is difficult to convert land use and zoning into an assessment
formula in a consistently fair and equitable manner. The existing apportionment method
includes land use and zoning factors and has proven to be extremely complicated and has
historically required legal opinions to provide interpretations in certain applications.
The methods of apportionment that best meet the criteria are the two based upon the physical
attributes of properties. These methods include alley frontage and a combination of alley
frontage and property area. The apportionment method using a combination of alley frontage
and property area accounts for the varying sizes and frontages of properties abutting alleys
including flag lots that abut alleys.
ATTACHMENT B
Public Works
Engineering
MEMORANDUM
City of Eugene
858 PearlStreet
Eugene, Oregon 97401
(541) 682-5291
(541) 682-5032 FAX
Date:
To:
From:
Subject:
February 28, 2004
Mayor Torrey and City Council
Mark Schoening, 682-5243
ALTERNATIVE FUNDING OPTIONS FOR THE CITY'S SHARE OF
ALLEY IMPROVEMENT PROJECTS
The existing sections of the Eugene Code pertaining to the apportionment of assessments for
alley improvements state that the City shall be responsible for the cost of improvements at the
intersection of two alleys or at the intersection of an alley with a street. It is estimated that the
City will be responsible for $115,000 of the estimated total cost of $1.6 million for the West
University Neighborhood alley improvement project. There are numerous eligible sources of
funding for the City share and each is discussed briefly in the following paragraphs:
Road Capital Projects Fund - Historically, this fund was used to pay the non-assessable
portion of local street and alley improvement projects. However, beginning in FY01 all
eligible revenues from the State to the City have been deposited in the Road Fund to fund
operations. In FY05, approximately $824,000 in service cuts will be implemented to balance
projected revenues and expenditures in the Road Fund. The Road Capital Projects Fund is
not a viable source of funds to fund the City's share of alley improvement projects.
General Fund -The General Fund expenditures continue to grow faster than revenues
requiring an annual review of General Fund services city-wide. Although an eligible funding
source, the General Fund is not a viable source of funds to fund the City's share of alley
improvement projects given the competing priorities of the General Fund.
Community Development Block Grant (CDBG) Funds - The City receives approximately
$1.5 million annually in federal CDBG funding which is spent in six priority funding areas,
one of which is City capital improvement projects. Street improvements, including alleys,
would fall in this category. In recent years, annual funding in this category has ranged from
$170,000 - $240,000. These funds are used for accessibility improvements to City facilities,
access ramps, and neighborhood parks, but could also be used for alley improvements. The
West University Neighborhood and several other neighborhoods with unimproved alleys are
ATTACHMENT B
CDBG-eligible neighborhoods. Therefore, CDBG funds are a viable source of funds to fund
the City's share of alley improvement projects in CDBG-eligible neighborhoods.
An alternative to identifying a source of funds to fund the City's share of alley improvement
projects is to amend the Eugene Code and require that all of the costs associated with an alley
improvement be assessed to the benefiting property owners. Alleys are a unique element of
the City's transportation system. Alleys provide access to abutting properties for owners and
tenants. Alleys also provide access for service providers such as garbage service and
deliveries to businesses. Alleys do not serve as transportation routes for the general public in
getting from one place to another. Because alleys primarily benefit the abutting property
owners, it is reasonable to require the abutting property owners to bear the entire cost of alley
improvements.
EUGENE CITY COUNCIL
AGENDA ITEM SUMMARY
Work Session: Central Area Transportation Study
Meeting Date: March 8, 2004
Department: Public Works
www. cl. eugene, or. us
Agenda Item Number: D
Staff Contact: Chris Henry
Contact Telephone Number: (541) 682-8472
AGENDA ITEM SUMMARY
This is a work session to review public testimony from the January 26, 2004, public hearing regarding
an update to the adopted 1993 Central Area Transportation Study (CATS). If adopted, the 2003 CATS
Update would replace the 1993 CATS as the transportation refinement plan for the greater downtown
area. The City Council will be asked to adopt only the policies included in the Central Area
Transportation Study.
BACKGROUND
Council Action History
The Central Area Transportation Study was most recently adopted in 1993 as the Central Eugene
Parking and Traffic Circulation Plan.
On April 9 2001, as key next steps to implement the Greater Downtown Vision, the City Council
initiated updates to both the 1984 Downtown Plan and the 1993 CATS.
On December 1, 2003 the City Council held a work session to consider the Draft June 2003 Central
Area Transportation Study.
On January 26, 2004, the City Council held a public hearing to gather testimony regarding the Draft
June 2003 Central Area Transportation Study.
Policy Issues
Should the 1993 Central Transportation Study be updated for consistency with the Eugene Downtown
Plan and to include the "Great Streets" concept?
Council Goal Action Priority
SUSTAINABLE COMMUNITY DEVELOPMENT
A community that retains a high quality of life anda healthy economy, effectively links landuse and
transportation planning, and successfully manages growth and change in the urban environment
The CATS policies support integration of land use and transportation planning through specific actions
related to the transportation system that implement the goals of the Eugene Downtown Plan. The study
L:\CMO\2004 Council Agendas\M040308\S040308D.doc
also attempts to balance transportation issues with community objectives related to economic growth
and development. A number of implementation strategies and projects proposed within CATS are
aimed at improving circulation and access in downtown Eugene for everyone and every mode of travel.
Financial and/or Resource Considerations
Conversion of some streets from one-way operation to two-way operation will require relatively minor
modifications to infrastructure. Funding of these improvements include a combination of existing
operational and capital funds. For some projects, it may be necessary to identify new capital funds
through future Capital Improvement Plan updates. Based on a very rough estimate, costs for
implementation should broadly range between $200,000 and $400,000. More detailed cost estimates
will only be available during detailed design of the operational improvements.
Other Background Information
The 1993 CATS is a policy and technical report that focuses on increasing the use of alternative modes
of transportation in central Eugene. Many of the policies and proposed actions identified in the 1993
CATS have been implemented. The Eugene Planning Commission plus three City Councilors
(Councilors Bettman, Meisner and Nathanson) began the process of updating the 1993 CATS in April
2001. An open house was held on June 20, 2002, in conjunction with the Downtown Plan Update to
gather public input prior to drafting the CATS update and releasing it for public review. An additional
open house was held on June 30, 2003, for public review of the draft CATS. The Planning Commission
then held a public hearing on July 15, 2003.
The Eugene Planning Commission has finished its review of the Draft June 2003 Central Area
Transportation Study. Through action on October 27, 2003, the Planning Commission recommended
adoption with changes by City Council (see Attachment A).
Following the January 26, 2004, public hearing, the Eugene City Council held the record open until
February 2, 2004. At time of writing, no date has been scheduled to take action.
Timing
There are no time constraints for adoption of CATS other than the scheduled dates for work session and
action.
OPTIONS
Not applicable.
STAFF RECOMMENDATION
None.
SUGGESTED MOTION
None; this is a work session only.
L:\CMO\2004 Council Agendas\M040308\S040308D.doc
ATTACHMENTS
A. Eugene Planning Commission recommendations to Eugene City Council (October 27, 2003)
B. Staff response to public testimony issues of January 26, 2004, City Council Public Hearing
C. Written testimony received for City Council Public Hearing on January 26, 2004
FOR MORE INFORMATION
Staff Contact: Chris Henry, Transportation Planning Engineer
Telephone: (541) 682-8472
Staff E-Mail: chris.c.henry~ci.eugene.or.us
L:\CMO\2004 Council Agendas\M040308\S040308D.doc
ATTACHMENT A
PLANNING COMMISSION RECOMMENDATION (October 27, 2003):
Forward the Draft June 2003 Central Area Transportation Study, with Eugene Planning
Commission recommendations, to Eugene City Council for adoption.
Eugene Planning Commission recommendations (new text indicated in bold italics, deletions
shown with strdkeom):
1. Modify Proposed Implementation Strategy 1.1 as follows:
1.1
"Develop plans including a post-planning, pre-implementation public
involvement process to convert the following street segments from one-way to
two-way operation..."
2. Modify Proposed Implementation Strategy 1.1, d. as follows:
1.1 d. "8th Avenue between ~ffe~soa Lincoln Street and Oak Street"
Modify Proposed Implementation Strategy 1.1 discussion by inserting text after second
paragraph as follows:
"Prior to implementation of any street conversion from one-way to two-way
operation, design and operational issues are reviewed for their ability to
function acceptably. In some cases, there may be unintended consequences of
those operational changes which may require modifications to the original
design or other mitigating measures. The nature of modifications may range
from relatively minor operational "tweaks" implemented frequently throughout
the transportation system to more substantial infrastructure changes or removal
of previously constructed infrastructure. Since most projects involve significant
public investment, caution is exercised when considering modification or
removal of previously constructed infrastructure to arrive at a functional and
cost effective solution."
4. Modify Proposed Implementation Strategy 1.1 discussion as follows:
"8th Avenue between ~Ffer~soa Lincoln Street and Oak Street. This segment of
the roadway has two travel lanes regulated as one-way westbound with on-street
parking on both sides of the roadway. Conversion would require the
reconstruction of signals at Wash;~ngtcn, Lincoln, Charnelton (if not accomplished
with those conversions), Olive, Willamette, and Oak streets. Further conversion to
two-way operation between Oak Street and Mill Street may be possible following
development of the new Federal Courthouse circulation plan. Due to narrow
existing street width, conversion to two-way operation between Jefferson Street
and Lincoln Street will also require further study to address the need for on-
street parMng, any future bicycle facilities and traffic operations."
Add new Proposed Implementation Strategy 1.5 as follows:
1.5
"Fund traffic study for overall north-south arterial traffic flow through
downtown to south Eugene.
Discussion: The 2003 update to the Cental Area Transportation Study
acknowledges that there is a demand for a Major Arterial to serve travel in a
north-south direction from the downtown core within the CATS study area to
the south end of Eugene. Such a study is beyond the scope of the 2003 CATS
Update. The study should include a comprehensive consideration and analysis
of north-south travel demand on the following streets: Willamette Street, Oak
Street, Pearl Street, High Street, Amazon Parkway, Patterson Street and
Hilyard Street."
Modify Proposed Implementation Strategy 2.2 by inserting text after last paragraph as
follows:
"The process for adopting an administrative rule includes opportunity for
public involvement and is addressed by the Eugene Code in section Z 019 City
Manager - Administrative and Rulemaking Authority and Procedures. To
summarize, that section requires that copies of the notice of intended
rulemaking be made available and that the notice be published in the
newspaper. The notice shall include the time, place and manner in which
interested persons may present their views. The city is required to provide
reasonable opportunity to submit comments and the City Manager shall make
findings that consider written submissions. Administrative rules may also be
petitioned for adoption, amendment or repeal."
Modify Proposed Implementation Strategy 7.3 discussion to delete second sentence as
follows:
"Discussion: A future Breeze shuttle route will likely be considered within the
next five to ten years. A ....;r,~, .... ;, ~; ......... ; ...... ^..,~, c,~; ....... ~
....................... ~ ~v ................................... e a on o a
second shuttle could affect transit routing within the downtown area..."
Revise the CATS study maps by moving the western boundary to coincide with the 1993
CATS boundary (see Attachment 1). The western boundary of CATS is Lincoln Street.
The June 2003 Draft Central Area Transportation Study maps erroneously indicated a
western boundary of Jefferson Street. The maps will be corrected to reflect Lincoln Street
as the western boundary. Proposed projects on Lawrence Street and portions of 8th
Avenue lie outside the CATS boundary. While informed by analysis through CATS,
those projects outside the boundary would be implemented through an administrative
process.
ATTACHMENT B
Public Works
Engineering
Transportation Planning
MEMORANDUM
City of Eugene
858 Pearl St 3rd Floor
Eugene, Oregon 97401
(541) 682-5291
(541) 682-5598 FAX
www. ci. eugene, or. us/PW
Date: February 4, 2004
To:
Eugene City Council
From:
Chris Henry, Public Works Engineering
Allen Lowe, Planning and Development
Subject:
Staff Response to Public Testimony Issues Raised at City Council Public
Hearing January 26, 2004 on the Central Area Transportation Study (record
held open until February 2, 2004)
This memorandum addresses issues raised in public testimony and in the record for the January
26, 2004 public hearing. Staff responses are shown in bold italicized text.
Street System
Willamette Street Conversion: Several citizens offered testimony with concerns about
converting Willamette Street from one-way to two-way operation. Those concerns were
generally focused on the segment between 18th and 20th avenues with impacts related to
business and the adjacent neighborhood. Issues raised were increased congestion, speed,
noise, safety, cut-through traffic and parking.
The 1993 Central Area Transportation Study (CATS) Final Report recommends
conversion of }Willamette Street from one-way to two-way operation between 13th and 18th
avenues. The 1993 CATS acknowledged at the time that the segment between 18th and 20th
avenues posed complex operational challenges.
The Eugene Planning Commission recommended to the Eugene City Council approval of
the Draft June 2003 CA TS which includes conversion of }Willamette Street from one-way
to two-way operation between 13th and 20th avenues. The Planning Commission made the
recommendation following consideration of testimony at a public hearing and the
assurance that staff would monitor the street operations and mitigate any significant
impacts to business and adjacent neighborhoods.
Much of the discussion and debate regarding the conversion centers on the segment of
}Willamette Street between 18th and 20th avenues. }Vhile there has been public support for
the conversion (including Eugene Fire and Emergency Medical Services) most of the
testimony has been in opposition. Due to the complexity of operations in this segment, staff
agrees that further analysis is warranted before conversion from one-way to two-way
Page 1 of 1
operation between 18th and 20th avenues. Future study and analysis should include
consideration of north-south traffic flows on Willamette, Oak, Pearl, High and Hilyard
streets as well as Amazon Parkway, business access and parMng, and adjacent
neighborhood parMng and circulation.
Limiting conversion of Willamette Street from one-way to two-way operation between 13th
and 18th avenues is consistent with the recommendation of the 1993 CATS, aspirations of
the downtown visioning process, and the need to provide for multi-directional access to the
new Fire Station #1.
Highway 99 Realignment: Several citizens offered testimony with concerns about
realigning Highway 99 near the new Federal Courthouse site. Issues raised were placement
of a highway along the Willamette riverfront and within the Willamette River Greenway.
The Courthouse District Concept Plan Final Report, approved by the Eugene City Council
July 31, 2002 includes the realignment of 6th Avenue (Highway 99) south of the railroad
for westbound traffic. The Central Area Transportation Study (CATS) is consistent with
the direction of the Courthouse District Concept Plan in regards to the 6th Avenue
realignment. The courthouse area transportation improvements are listed in the FY '04-
'09 City of Eugene Capital Improvement Program (CIP), the FY '04- '06 Metropolitan
Transportation Improvement Program (MTIP) and the FY '04-'07 Statewide
Transportation Improvement Program (STIP).
The realignment of 6th Avenue is not within the Willamette River Greenway. The roadway
realignment will be south of the railroad tracks adjacent to the new Federal Courthouse.
Access Management: Testimony offered was concerned that application of access
management principles would degrade the character of downtown.
CATS proposes an implementation strategy to develop an Administrative Rule for Access
Management strategies throughout the city. An access management strategy would likely
apply different standards within the downtown core than elsewhere in the city. The
administrative rule process also includes a public process and opportunity f or public
commentper Eugene Code 2. 019.
Pedestrian System
Testimony offered related to the placement of street furniture and the Great Streets concept.
From the CATS Proposed Implementation Strategy 4. 5: "Adopt an administrative rule to
amend Design Standards and Guidelines for Eugene Streets, Sidewalks, Bikeways, and
Accessways, to create a new design standard or guideline for the placement of signal and
light poles, signal boxes, and street furniture."
The administrative rule processfor amending the design standards and guidelines will
consider the placement of street furniture as well as other elements within the public right-
Page 2 of 2
of-way. Specific location of elements within the right-of-way depends upon specific design
characteristics of the street and may vary from project to project. The administrative rule
process also includes a public process and opportunity for public comment per Eugene
Code 2. O19.
From the CA TS discussion of Proposed Policy $: "Implementation of the concept will
require physical changes to the street itself, as well as land use regulations and/or design
standards for buildings fronting on those streets. The Great Streets concept includes streets
of two distinct types: a mixed-use retail, office and residential street; and a "civic street"
that provides for the concentration of government facilities and other civic uses."
The Great Streets concept is also discussed in the Downtown Plan Update: "they are
pedestrian-oriented in design and appearance, with retail and other active ground floor
uses. They accommodate bicycles, slow-moving automobile traffic, on-street parking and
emergency vehicles. Great Streets are places people choose to walk along and return to."
A recent application of the Great Streets concept can be seen in the recent reopening of
Broadway between Oak and Charnelton streets. The concept is realized through the
application of adopted design standards and guidelines.
Transit System
Testimony offered related to Bus Rapid Transit operational issues, Bus Rapid Transit
planning and downtown shuttle routing.
Lane Transit District (LTD) articulated operational concern for the operation of Bus
Rapid Transit (BRT) on Eugene streets, specifically 1 Otb Avenue. Staff generally concurs
with the recommendations and continues to meet with LTD staff to work through the
operational details in a cooperative and collaborative manner to ensure that, in particular,
the operational efficiencies of the BRT system are not compromised.
BRT along the Coburg Road corridor was planned in TransPlan (adopted 2002) as part of
a metropolitan area-wide transit system as one of several general alignments. Specific
study of the corridor is currently in progress with a stakeholder group. The Eugene City
Council will be discussing the study on February 23, 2004 and will have an opportunity to
provide direction prior to further study of the Coburg Road corridor. In addition, Council
approval will be sought prior to implementation of any future BRT corridors.
From Proposed Implementation Strategy 7. 2: "Evaluate the feasibility of adding a transit
connection to the existing bicycle and pedestrian facility that connects 6th Avenue and 7th
Avenue on Willamette Street. "And the discussion: "The viability of this connection is
unknown and must be studied in more detail before a decision is made to pursue the
connection. Staff recommends that the City conduct a feasibility study to evaluate
impacts..."
Page 3 of 3
The details of planning, design, impacts and potential benefits and construction cost would
be addressed through a future feasibility study. Any associated rerouting of the downtown
shuttle would be addressed by the study. Adoption of the CATS document itself would not
pre-approve the construction of the project; it only identifies the project as one needing
further study.
The Eugene Planning Commission on October 27, 2003 modified the Proposed
Implementation Strategy Z3 in the Draft 2003 CATS to delete second sentence of the
discussion as follows:
"Discussion: A future Breeze shuttle route will lil~ely be considered within the next five to
ten years. A y ............................ 6..~-. .... ~ .............................. ~ ~.
.... · ; ..... ,; .... r.. ,~. ....... a, ...... ~-""~- The addition of a second shuttle couM affect
transit routing within the downtown arem.. "
The CATS draft as considered by the Eugene City Council no longer contains reference to
a transit river crossing.
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