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Home My WebLink AboutItem B: River Road/Santa Clara Transition Project - Final Report ECC UGENE ITY OUNCIL AIS GENDA TEM UMMARY Work Session: River Road/Santa Clara Transition Project - Final Report Meeting Date: June 21, 2006 Agenda Item Number: B Department: Central Services Staff Contact: Jim Carlson www.eugene-or.gov Contact Telephone Number: 682-5524 ISSUE STATEMENT The River Road/Santa Clara (RR/SC) Transition Project is an outgrowth of a longstanding effort to address governance and service delivery challenges in the River Road and Santa Clara communities within the City of Eugene’s Urban Growth Boundary (UGB). In April 2004, the City of Eugene contracted with David Reed & Associates to work with residents and service providers to prepare a transition plan that incorporates the Trust, Voice, Equity, and Collaboration. themes identified by a committee of RR/SC residents in 2002 – Twelve stakeholders, representing diverse community interests, served as an advisory “Task Force” to assist the consultants in developing a plan. David Reed will be present at the meeting to present the Final Report. Rob Handy, chair of the River Road Community Organization and Jerry Finigan, chair of the Santa Clara Community Organization and both members of the River Road/Santa Clara Citizen Task Force will also be available to provide their perspective as requested by the City Council. BACKGROUND River Road and Santa Clara have evolved as independent communities almost since the City of Eugene was founded in 1853. The Metro Area General Plan determined in 1982 that the City of Eugene would provide urban services to the River Road and Santa Clara communities upon annexation. Yet most of River Road and Santa Clara still remain outside the Eugene city limits. In addition to the City of Eugene and Lane County, six local institutions provide urban services in the RR/SC area, including two water districts, two rural fire districts, a park and recreation district, and the Eugene Water and Electric Board (EWEB). Since 1982, as properties have annexed into the City of Eugene, the local service districts have experienced a loss of tax revenue and changes in service patterns and demands, creating questions and challenges about the future of River Road and Santa Clara and the quality of these services. Residents and service providers identified issues of concern during interviews with the consultants: River Road and Santa Clara are a patchy, complex mosaic of incorporated and unincorporated areas; urban services are provided by multiple jurisdictions and agencies in a fragmented and confusing way; rapid growth and infilling are viewed as a threat to livability and neighborhood character; hostility and distrust have built up over many years; and residents feel they have little voice in decisions that affect their quality of life. The scope of the Transition Project was initially to create better communication between residents, community organizations, and special districts, City and County service providers; and to prepare a transition plan for the unincorporated areas of River Road and Santa Clara. After interviews with stakeholders and involvement of L:\CMO\2006 Council Agendas\M060621\S060621B.doc the RR/SC Task Force, these project goals were also included – creating a vision for the future of River Road and Santa Clara, examining ways to preserve the existing character of the communities that make them unique and livable,andamending the 1986 “River Road-Santa Clara Urban Facilities Plan” to include new vision and goal statements. Transition To achieve these goals, the Task Force and Transition Team worked together to develop the and Heritage Framework by identifying “transition” themes and qualities that help define the heritage of the River Road and Santa Clara communities. This process resulted in the following outcomes: White Paper ?The “” outlined 55 potential transition and heritage initiatives and options, from which the Task Force identified three “unifying themes” as having the most applicability to priorities for River Road and Santa Clara residents: Landscape – to sustain the visual and functional “look and feel” and rural heritage of the River Road and Santa Clara communities Institutions –to sustain and in some cases expand key community institutions Governance – to sustain and strengthen the longstanding tradition of local government and self-determination Uniqueness Statement – ?identifies five qualities that make the two communities distinctively different from other Eugene neighborhoods. Vision Statement ?– describes a preferred vision of the future for River Road and Santa Clara, reflecting core values and beliefs of residents. Goal Statements ? – ten goals provide guideposts to fulfill the preferred vision. Strategies and Actions ? – outlines 11 specific directions to achieve the goals and 38 actions to facilitate execution and implementation. Elevenneighborhood conversations ? “” were held with residents in the RR/SC area to better understand their concerns and ideas about the future of the area. Almost 150 residents participated in these meetings, River Road community is cohesive and clear in terms of two and two major themes emerged: 1) the prioritiesSanta Clara community’s priorities are more varied - land use and governance; and 2) the . – in addition to land use and governance, priorities also include transportation and parks andrecreation One of the most important recommendations of the Transition Project is for the City of Eugene to consider amending the 1986 “River Road-Santa Clara Urban Facilities Plan,” including a new vision statement, goals, and policies that acknowledge more current and targeted priorities and sensibilities of residents. At the request of Task Force members and the two community organizations, the final year of the Transition Project will be organized and led by the River Road and Santa Clara Community Organizations. Their goals are to create a more neighborhood-led approach, including refinement and implementation of the framework, create more neighborhood support for a Transition Plan, and more neighborhood control over the details of implementation. This report is provided as the final deliverable for use by the City of Eugene, the two community organizations, and the local service providers as they continue to develop a transition plan for the RR/SC area. L:\CMO\2006 Council Agendas\M060621\S060621B.doc RELATED CITY POLICIES Most of the related City policies are contained in the Metro Plan, Chapter II, Plan Principals. The Metro Plan is based on the premise that Eugene and Springfield, the two existing cities, are the logical providers of services accommodating urban levels of development within the urban growth boundary. (Fundamental Principle 6, page II-1) COUNCIL OPTIONS This item is for information and discussion only; no council options were identified. CITY MANAGER’S RECOMMENDATION The City Manager recommends accepting the River Road and Santa Clara Transition Project Final Report for use by the City and River Road and Santa Clara Community Organizations in their continued work on urban transition issues. SUGGESTED MOTION Move to accept the River Road and Santa Clara Transition Project Final Report. ATTACHMENTS A. River Road and Santa Clara Transition Project - Final Report B. Final Report Appendices Appendix A – Task Force Members ? Appendix B – Service Providers in River Road and Santa Clara ? Appendix C – Issues and Findings Report and Summary of Stakeholder Interviews ? Appendix D – Public Participation Work Plan ? Appendix E – Public Outreach Report ? Appendix F – Community Transition and Heritage White Paper ? Appendix G – Outcomes of Meetings with RR/SC Service Providers ? FOR MORE INFORMATION Staff Contact: Jim Carlson Telephone: 682-5524 Staff E-Mail: james.r.carlson@ci.eugene.or.us L:\CMO\2006 Council Agendas\M060621\S060621B.doc RIVERROADANDSANTACLARA TRANSITIONPROJECT FINALREPORT Preparedfor TheCityofEugene by DavidReed&Associates,Inc. DavidReed,TransitionManager PaulHoobyar,Facilitator/ProjectPlanner JulieFischer,CommunityPlanner JimRapp,MunicipalGovernanceSpecialist June2006 ExecutiveSummary ExecutiveSummary PO rojectverview TheRiverRoad/SantaClara(RR/SC)TransitionProjectisanoutgrowthofalong-standingefforttoaddress governanceandservicedeliverychallengesintheRiverRoadandSantaClaracommunitieswithinCityof EugeneÕsUrbanGrowthBoundary(UGB).InApril2004,theCityofEugenecontractedwithDavidReed& Associatestoworkwithresidentsandserviceproviderstoprepareatransitionplanthatincorporatesthe Trust,Voice,Equity,andCollaboration. themesidentifiedbyacommitteeofRR/SCresidentsin2002Ð Twelvestakeholders,representingdiversecommunityinterests,servedasanadvisoryÒTaskForceÓtoassist theconsultantsindevelopingaplan. H istory RiverRoadandSantaClarahaveevolvedasindependentcommunitiesalmostsincetheCityofEugenewas foundedin1853.TheMetroAreaGeneralPlandeterminedin1982thattheCityofEugenewouldprovide urbanservicestotheRiverRoadandSantaClaracommunitiesuponannexation.Yet,mostofRiverRoadand SantaClarastillremainoutsidetheEugeneCitylimits. SP erviceroviders InadditiontotheCityofEugeneandLaneCounty,sixlocalinstitutionsprovideurbanservicesintheRR/SC areaincludingtwowaterdistricts,tworuralfiredistricts,aparkandrecreationdistrict,andtheEugeneWater andElectricBoard(EWEB).Since1982,aspropertieshaveannexedintotheCityofEugene,thelocalservice districtshaveexperiencedalossoftaxrevenueandchangesinservicepatternsanddemands,creating questionsandchallengesaboutthefutureofRiverRoadandSantaClaraandthequalityoftheseservices. I ssues Residentsandserviceprovidersidentifiedissuesofconcernduringinterviewswiththeconsultants:River RoadandSantaClaraareapatchy,complexmosaicofincorporatedandunincorporatedareas;urbanservices areprovidedbymultiplejurisdictionsandagenciesinafragmentedandconfusingway;rapidgrowthand infillingareviewedasathreattolivabilityandneighborhoodcharacter;hostilityanddistrusthavebuiltup overmanyyears;andresidentsfeeltheyhavelittlevoiceindecisionsthataffecttheirqualityoflife. PS rojectcope ThescopeoftheTransitionProjectwasinitiallytocreatebettercommunicationbetweenresidents, communityorganizations,andspecialdistrict,CityandCountyserviceproviders;andtoprepareatransition planfortheunincorporatedareasofRiverRoadandSantaClara.However,afterinterviewswithstakeholders andinvolvementoftheRR/SCTaskForce,theseprojectgoalswerealsoincludedÐcreatingavisionforthe futureofRiverRoadandSantaClara,examiningwaystopreservetheexistingcharacterthatmakethe communitiesuniqueandlivable,andamendingthe1986ÒRiverRoad-SantaClaraUrbanFacilitiesPlanÓto includenewvisionandgoalstatements. O utcomes Toachievethesegoals,theTaskForceandTransitionTeamworkedtogethertodevelopatransition Ò Framework ÓbyidentifyingÒtransitionÓthemesandqualitiesthathelpdefinetheheritageoftheRiverRoad andSantaClaracommunities. 2 RIVERROAD/SANTACLARA TRANSITIONPROJECT ExecutiveSummary AÒ WhitePaper Ódevelopedbytheconsultantsoutlined55potentialtransitionandheritageinitiativesand optionsforRiverRoadandSantaClara,andprovidedastructuretoefficientlyaddresscomplexservice deliveryissuesaswellasconsidertransitionalternativesforthetwocommunities.TheWhitePaperalso servedasthefoundationfordevelopingthe RR/SCTransitionandHeritageFramework.TheTaskForce identifiedthreeÒunifyingthemesÓdescribedintheWhitePaperashavingthemostapplicabilitytopriorities forRiverRoadandSantaClararesidents: LandscapeÐ tosustainthevisualandfunctionalÒlookandfeelÓandruralheritageoftheRiverRoad andSantaClaracommunities Institutions Ðtosustainandinsomecasesexpandkeycommunityinstitutions Governance Ðtosustainandstrengthenthelongstandingtraditionoflocalgovernmentandself- determination heritagequalities ThesethemesalsorespondedtomajorobjectivesoftheWhitePaper:topreservethatare transitionofservices. highlyvaluedbythetwocommunities,andtoachieveasmoothandorderly KeyelementsoftheTransitionandHeritageFrameworkincludea UniquenessStatementÐ qualitiesthat makethetwocommunitiesdistinctivelydifferentfromotherEugeneneighborhoods;a VisionStatement Ða preferredvisionofthefuture,reflectingresidentsÕcorevaluesandbeliefs;GoalStatements Ðtengoalsthat provideguidepoststofulfillthepreferredvision;and StrategiesandActions Ð11specificdirectionsto achievethegoalsand38actionstofacilitateexecutionandimplementation. TheTransitionTeamalsoengagedin11Ò neighborhoodconversations ÓwithresidentsintheRR/SCareato betterunderstandtheirconcernsandideasaboutthefutureofthearea.Almost150residentsparticipatedin thesemeetings,andtwomajorthemesemerged:theRiverRoadcommunityiscohesiveandclearintermsof twopriorities:landuseandgovernance;andtheSantaClaracommunityÕsprioritiesaremorevariedÐin additiontolanduseandgovernance,prioritiesalsoincludetransportationandparksandrecreation. ACP mendingtheommunitylan OneofthemostimportantrecommendationsoftheTransitionProjectisfortheCitytoconsideramendingthe 1986ÒRiverRoad-SantaClaraUrbanFacilitiesPlan,Óincludinganewvisionstatement,goals,andpolicies thatacknowledgemorecurrentandtargetedprioritiesandsensibilitiesofresidents. WN hatÕsext AttherequestofTaskForcemembersandthetwoCommunityOrganizations,thefinalyearoftheTransition ProjectwillbeorganizedandledbytheRiverRoadandSantaClaraCommunityOrganizations.Theirgoals aretocreateamoreneighborhood-ledapproach,includingrefinementandimplementationoftheFramework TransitionPlan,andtocreatemoreneighborhoodsupportforaTransitionPlan,andmoreneighborhood controloverthedetailsofimplementation.DavidReed&Associatesisprovidingthisfinalreportasits primarydeliverableforusebytheCityofEugene,thetwoCommunityOrganizations,andthelocalservice providersastheycontinuetodevelopatransitionplanfortheRR/SCarea. 3 RIVERROAD/SANTACLARA TRANSITIONPROJECT Acknowledgements Acknowledgements RiverRoad/SantaClaraTransitionTeam TransitionProjectManager DavidReed,DavidReed&Associates,Inc.,Springfield Facilitator,ProjectPlanning PaulHoobyar,WatershedInitiatives,LLC,Eugene CommunityPlanner JulieFischer,FormerCo-chair,RiverRoadUrbanServices Committee,Eugene MunicipalGovernanceSpecialist JimRapp,NortonArnold&Company,Portland CityofEugene ProjectManager JimCarlson,AssistantCityManager RiverRoad/SantaClaraCitizenTaskForce RiverRoad BethGerot RobHandy BeckyRiley JoleneSiemsen DaveVanSickle(withdrewFebruary2006) MaraWile SantaClara JerryFinigan PatLatimer KatePerle PatricePhilpott MaryEllenRiley(withdrewFebruary2006) AnnVaughn ElectedOfficials CityofEugene CouncilorWard5CouncilorWard7 GaryPapeAndreaOrtiz LaneCountyCommissioners WestLaneNorthEugene AnnaMorrisonBobbyGreen 4 RIVERROAD/SANTACLARA TRANSITIONPROJECT TableofContents TableofContents ExecutiveSummary2 ProjectBackgroundandScope6 IssuesandFindings11 PublicOutreach12 PublicParticipationPlan NeighborhoodConversations TransitionandHeritageWhitePaper16 TransitionandHeritageFramework19 LookingForward28 References32 Appendices CitizenTaskForceMembers A. ServiceProvidersinRiverRoad/SantaClara B. IssuesandFindingsReport C. PublicParticipationPlan D. PublicOutreachReport E. TransitionandHeritageWhitePaper F. FrameworkServiceProviderResponses G. 5 RIVERROAD/SANTACLARA TRANSITIONPROJECT ProjectBackground ProjectBackgroundandScope TheRiverRoad/SantaClaraTransitionProjectisanoutgrowthofalong-standingeffort toaddressgovernanceandservicedeliverychallengesintheRiverRoadandSanta Purposeofthe ClaracommunitieswithinCityofEugeneÕsUrbanGrowthBoundary(UGB).Sincethe Project mid-1850s,RiverRoadandSantaClarahavegrownasindependentcommunities,and overtimehavedevelopedtheirownlocalserviceinstitutions. In1982,theEugene/Springfieldregionalplan(MetroPlan)establishedtheCityof EugeneastheultimateproviderofurbanservicestotheRiverRoadandSantaClara communitiesuponannexation,determinedthatallnewdevelopmentinsidetheUGB wouldbeannexedtotheCity,andcalledforexistingspecialservicedistrictsto eventuallybedissolved.Withincrementalannexation,apatchworkofannexedand unincorporatedareashasemerged,resultinginenormouschallengesandconfusion withrespecttoservicedeliveryandfuturegovernance,andcreatingalegacyof acrimoniousinteractionswiththeCityofEugeneforresidentsandlocalservice providersalike. TheRiverRoad/SantaClaraTransitionProjectistheCityofEugeneÕsresponsetoa milestonereportthatagroupofresidentspreparedin2002,afterexaminingcomplex servicedeliveryandurbanizationissuesinRiverRoadandSantaClara.TheUrban ServicesCommitteeReportrecommendedthatatransitionmanagerberetainedto facilitatedevelopmentofatransitionplanforthetworapidlyurbanizingcommunities. InApril2004,theCityofEugenecontractedwithDavidReed&Associatesasan independentthirdpartywithresponsibilityforworkingwithresidentsandservice providerstoprepareatransitionplanthatincorporatesthemesidentifiedbythe2002 CommitteeÐThisreportistheresultofthe Trust,Voice,Equity,andCollaboration. workoftheTransitionManagertoprepareaplanforthefutureofRiverRoadand SantaClara. TransitionTeam TheTransitionManagerassembledaTransitionTeamtofulfillcontractualobligations oftheproject.JimCarlson,AssistantCityManager,wastheCityofEugeneÕsProject Manager.Theconsultingteamincluded: DavidReedÐRR/SCTransitionManager PaulHoobyarÐFacilitator/ProjectPlanner JulieFischerÐCommunityPlanner JimRappÐMunicipalGovernanceSpecialist CitizenTaskForce AfterconductingaseriesofstakeholderinterviewsculminatinginaCommunity RoundtablemeetinginDecember2004,twelvestakeholderswereinvitedbythe TransitionManagertoserveinanadvisorycapacityastheRR/SCTransitionTask Force.CriteriaforselectingTaskForcemembersincludedrepresentationofdiverse communityinterestsandstakeholdergroups,formermembersoftheUrbanServices Committee,electedofficialsoftheRiverRoadandSantaClaraCommunity Organizations,residencyinthetwocommunities,andknowledgeandexpertiseto bringtothetransitionplanningprocess.Theselectionprocessincludednominations fromlocalresidents. TheTaskForceincludedbothchairsandboardmembersofthetwocommunity organizations,businessowners,asmall-scaledeveloper,communityfarmer, accountant,registerednurse,aformerboardmemberoftheRR/SCPropertyOwners Association,communityvolunteers,andformerteachersinlocalschools.(See AppendixAforTaskForcememberbackgroundinformation). 6 RIVERROAD/SANTACLARA TRANSITIONPROJECT ProjectBackground OnecriterionforcreatingtheTaskForcewasnotachievedÐabalanceofresidents livinginboththeincorporatedandunincorporatedareas.Allbutthreeofthemembers werenon-Cityresidents. MostoftheseTaskForcemembersworkedwiththeTransitionTeamfor16months andactivelyparticipatedin14meetingsfromFebruary2005toMay2006.AllTask ForcemeetingswereconductedconsistentwithOregonpublicopenmeeting requirements.AgendasweredistributedtoanInterestedPartieslistofover100 individuals,andmeetingsummarynoteswererecordedanddistributedtoallparties. CitystaffincludingtheAssistantCityManagerandaprincipalplannerattended meetings,aswellaselectedofficialsfromtheCityofEugeneandLaneCounty. ProjectArea ThecommunitiesofRiverRoadandSantaClaraextendfromtheWillametteRiveron theeast,ChambersConnectoratthesouth,NorthwestExpressway/PrairieRoadtothe west,andBeaconDriveonthenorth.Approximately41%ofSantaClarahouseholds areincorporatedintheCityofEugene,and29%oftheRiverRoadhouseholds. RiverRoadandSantaClaraCommunities Grey=AnnexedWhite=Unannexed 7 RIVERROAD/SANTACLARA TRANSITIONPROJECT ProjectBackground Asnotedpreviously,theRiverRoadandSantaClaracommunitieshavebeen HistoryofRiverRoad neighborstotheCityofEugenealmostsincetheCitywasfoundedin1853.TheRiver andSantaClara RoadthoroughfarewasoncepartofOregonÕsfirstoverlandlinkbetweenPortlandand CaliforniaÐtheOldTerritorialHighway.Thisstagecoachroadconnectedthesouthern WillametteValleytotherestoftheregionin1865,andthefertileagriculturallandsin RiverRoadandSantaClarawereimmediatelyattractivetosettlers.Fruitandnut orchardsaswellaslargefarmsdefinedlandscapepatternsfordecades.(See ÒÓforsettlementpatternsofRiverRoadandSantaClara). EugeneÕsHistoricRiverRoad However,significantchangebeganredefiningtheRiverRoadandSantaClara communitiesasearlyas1950.Housesreplacedmanyofthefilbertandwalnutgroves intheRiverRoadarea,andby1975subdivisionswithcurvedstreets,cul-de-sacs,and urbanlotsizesbecamecommoninmanypartsofSantaClara.Yet,mostofRiver RoadandSantaClarahasremainedoutsidetheEugeneCitylimits. In1982,theÒMetroAreaGeneralPlanÓdeterminedthattheCityofEugenewould provideurbanservicestotheRiverRoadandSantaClaracommunitiesupon annexation.Subsequently,theCitymandatedconnectionsofallpropertiestothe regionalsewersystem.Withincrementalannexation,thetransitionfromaruralto urbandevelopmentpatternhascreatedapatchworkofCityandunincorporated properties,andinturnhasfueledcommunitydistrustandhostility,particularlyamong longer-termresidents. In1986,theÒRiverRoad-SantaClaraUrbanFacilitiesPlanÓwasadoptedbytheCityof EugeneandLaneCountywithelementsincludingsanitarysewerservice,landuse, transportation,andpublicfacilities. ServiceProviders Toprovideservicestotheunincorporatedareas,anumberoflocalinstitutionshave evolvedincludingtwowaterdistricts,tworuralfiredistricts,aparkandrecreation district,andtheEugeneElectricandWaterBoard(EWEB).LaneCountyalsoprovides police,transportation,roadmaintenance,andstormwatermanagementservices.For propertiesthatareincorporated,theCityofEugeneprovidesawiderangeofurban services.Threeschooldistrictsalsoservethearea.ByagreementwithLaneCounty, theCityofEugeneprovidesbothCityandunincorporatedpropertyownerswith planning,permit,andhistoricpreservationservices.Publicsafetyandtransportation responsibilitiesaresharedbetweentheCityandCountyjurisdictions.(SeeAppendixB forthematrixofserviceprovidersinbothannexedandunannexedareas). ServiceProvidersinRiverRoadandSantaClara RiverRoadParkandRecreationDistrict LaneRuralFireandRescueDistrict SantaClaraRuralFireProtectionDistrict RiverRoadWaterDistrict SantaClaraWaterDistrict EugeneElectricandWaterBoard BethelSchoolDistrict EugeneSchoolDistrict JunctionCitySchoolDistrict CityofEugene LaneCounty AspropertiesareannexedtotheCity,specialservicedistrictsareaffectedbyalossof taxrevenueandcustomersaswellaschangesinservicepatternsanddemands, creatingmanychallengesforplanningthefutureofRiverRoadandSantaClaraand providingqualityurbanservices. 8 RIVERROAD/SANTACLARA TRANSITIONPROJECT ProjectBackground Moreover,undertheMetroPlan,RiverRoadandSantaClarahaveevolvedintoa complexmosaicofresidencesandbusinesseswithafragmentedsystemofservices forpolice,fire,water,parksandrecreation,andtransportation.Thisdisjointedsystem hascreatedduplication,inefficiencies,andfrustrationforbothresidentsandservice providers.Atthesametime,rapidgrowthoftheareaiscreatingnewdemandsfor urbanservices. InOctober2004,ECONorthwestpreparedaÒFiscalAnalysisofUrbanServicesin RiverRoadandSantaClaraÓfortheCityofEugene.Thisreportprovidedfactsabout serviceprovisioninthetwocommunitiesincludinglevelsandcostsofservices,aswell aswhatresidentspayforthoseservicesinbothannexedandunannexedareas. Initially,theprimaryobjectiveoftheTransitionProjectwastoestablishaplanfor ProjectScope orderlytransitionofservicestoanurbanlevelforunincorporatedpropertiesinRiver RoadandSantaClara.Secondaryobjectivesweretoundertakestudiesandprograms toimproveurbanservices,andtocreatebettercommunicationbetweenresidents, communityorganizations,andserviceprovidersincludingspecialdistricts,theCityof Eugene,andLaneCounty. Amissionstatementprovideddirectionfortheprojectandworkplandevelopment. TransitionPlanMission ToestablishapartnershipwithresidentsofRiverRoadandSantaClara,City andCountystaffandelectedofficials,andspecialdistrictserviceproviders, forthepurposeofpreparingacomprehensiveTransitionPlan.ThePlanwill enableasmoothandorderlytransitionofurbanservicesinwaysthat preservecommunityandneighborhoodvalues,retainwherefeasible communityinstitutions,andforgenewandcreativemethodsandpractices forthemosteffectiveandefficientdeliveryofurbanservices. Primarygoalsaretobuildstakeholdertrust,provideampleopportunitiesfor residentstohaveavoiceinshapingtheirfuture,striveforinnovativeways toensureequitabledeliveryofurbanservices,andcreateacollaborative forumformappingthepreferredfuture. PlanningbenchmarksarethemesandrecommendationsfromtheFinal ReportandRecommendationsoftheRiverRoadandSantaClaraUrban ServicesCommittees(September2002):Trust,Voice,Equity,and Collaboration. Afterconductinginterviewswithstakeholdersandbasedonseveralmeetingswiththe TaskForce,itbecameapparentthattheanothersetofobjectiveswereconsidered equallyimportantfortheproject: TocreateavisionforthefutureofRiverRoadandSantaClara Toexaminewaystopreserveexistingcharacter,qualitiesandvaluesthatmake RiverRoadandSantaClarauniqueandlivable ToamendtheÒ1986RiverRoad-SantaClaraUrbanFacilitiesPlanÓtoincludenew visionandgoalstatements PublicParticipation GiventhecomplexenvironmentinRiverRoadandSantaClaraandlonghistoryof distrusttowardtheCityofEugene,avarietyofopportunitieswereconsideredessential toengageresidentsandcreateatransparentpublicprocess.Thecoreofthepublic outreacheffortwastheNeighborhoodConversationproject.Implementationofthe 9 RIVERROAD/SANTACLARA TRANSITIONPROJECT ProjectBackground PublicParticipationPlanandoutcomesoftheneighborhoodconversationsaredetailed inthePublicOutreachChapter. TransitionandHeritageFramework Atwo-stepstrategicapproachwastakentoprovideastructurefortheTaskForceto efficientlyidentifyoptionsandstrategiesanddevelopaÒframeworkÓforpreparinga transitionplan.ThisapproachincludednotonlythenotionofÒtransitionÓbutalsoa ÒheritageÓthemetoaddressconcernsforpreservingcommunityvaluesandlocal institutions,retainingneighborhoodcharacter,andlossofcontrolandgovernance. Step1:CommunityTransitionandHeritageWhitePaper Aninitialplanningandassessmentdocument,referredtoastheÒWhitePaper,Ó identified55transitionandheritageinitiativesandoptionsfortwelveservicedelivery areas;theWhitePaperalsoservedasaworkingdocumenttofacilitatediscoveryand forbrainstormingcreativesolutionsforgovernanceandcommunitylivability. Step2:FrameworkDevelopment UsingtheWhitePaperasaguide,theTaskForcehelpeddevelopastrategic TransitionandHeritageFrameworkdocument.TheFrameworkisdesignedtobecome thefoundationforpreparingatransitionplan,facilitatingacollaborativeprocesswith serviceprovidersandtheTaskForcetoprepareavision,goals,priorities,and strategiesfortransitionofRiverRoadandSantaClaratoanurbanlevelofservice, whilepreservingheritagequalities. UponcompletionoftheFramework,sixmembersoftheTaskForceproposedashiftto ShiftinScope aneighborhood-basedapproachfortheremainingyearofthetransitionproject.Using theFrameworkasafoundation,theRiverRoadandSantaClaraCommunity Organizationswouldexercisegreaterauthorityandopportunitytoengageresidentsin completingthetransitionplanandfocusoncommunityplanningissues.Whiledetails havenotbeenworkedoutwiththeCity,DavidReedandAssociatescompletedits workandsubmittedthisfinalreporttotheEugeneCityCouncilonJune21,2006. RIVERROAD/SANTACLARA 10 TRANSITIONPROJECT IssuesandFindings IssuesandFindings Inthespringandsummerof2004,DavidReed&Associatesinterviewed38River RoadandSantaClarastakeholders,serviceproviders,andelectedofficials.The purposeoftheinterviewswastoframetheresultsasissuesandfindings,priorto preparingaworkplanfortheTransitionProject(seeAppendixCforthecomplete report). CriticalIssues Fivecriticalissuesemergedfromthisinterviewprocess: ÒNoonehasmadeany senseofthisandhowto RiverRoadandSantaClarahaveevolvedintoapatchy,complexmosaicof incorporatedandunincorporatedareas. bringallofthepieces together.Ó Urbanservicesareprovidedbymultiplejurisdictionsandagenciesina fragmentedwaythatisconfusingandfrustratingtoresidentsandservice providers. Rapidgrowthandinfillingareperceivedasathreattocommunitylivability, existingneighborhoodcharacter,andsenseofplace. Hostilityanddistrusthavebuiltupovermanyyears,inpartfrommandatory connectionstothesewersysteminthe1980s,andinpartfromtheCityÕs incrementalannexationpractices. ÒIftheCitywillassure Residentsfeeldisenfranchisedwithlittlevoiceindecisionsthataffecttheir methatmystreetwillnot qualityoflife. bewidenedwithcurbs andgutters,Iwillbeglad Opportunities tobeannexed.Ó Inspiteofthecontentious,cumbersome,andcomplexenvironmentinRiverRoadand SantaClara,theinterviewsalsorevealedanumberofopportunities: RiverRoadandSantaClaraprovideopportunitiestoexplorenewand creativeapproachestourbanization,andinturnbuildcommunitytrustand confidence. RiverRoadandSantaClarahaveuniquequalitiesincludingarichhistory, andspecialnatural,scenic,andopenspacefeaturesincludingproximityto theWillametteRiver. ÒWeneedtostraightenout Conclusions immediateproblemsand InterviewresultsprovideddirectionfortheTransitionProject: developanewpaththat hasmainstream StakeholderInterviewConclusions endorsement,andmake transitionwork.Ó Theprojectwillrequirepatience NeedforSensitivityandAdaptation. andwillingnesstotakerisk.Therewillbefailuresmixedwithsuccess. Long-termvisionandshort-term Long-termandShort-termSolutions. resultswillbeneededtoaddresscomplexissuesandcommunity sensibilitiessuchaslivability. .Focusedpathfindingandnavigatingwillbe StrategicApproach required. Essentialtosuccesswillbecommunitybuy-intosolutions QuidProQuo. proposed 11 RIVERROAD/SANTACLARA TRANSITIONPROJECT PublicOutreach PublicOutreach Inclusivenessandtransparencyweremajorunderpinningsofthetransitionplanning process.Specialeffortwasmadetoeffectivelyandefficientlyoperatewithinthe complexenvironmentandtobesensitivetothelonghistoryofdistrustintheRiver RoadandSantaClaracommunities. Earlyintheproject,aPublicParticipationPlanwaspreparedincludinggoalsadapted Public fromthepublicparticipationÒSpectrumÓdevelopedbytheInternationalAssociationof ParticipationPlan PublicParticipation.ÓThegoalsrangedfromkeepingresidentsinformedto empoweringstakeholderstoexplorecreativeideasandsolutions.(SeeAppendixD). PublicParticipationGoals keepingstakeholdersinformedtothehighest ProvidingInformationÐ degreepossible,includingbetterunderstandingofexistingservicesand programs. maintainingopennessandsolicitingfeedback,actively ConsultingÐ listeningtoconcernsandaspirations. ensuringthatpublicinputisreflectedinalternativesand InvolvingÐ solutions Avarietyofpublicparticipationmethodsprovidedopportunitiesforresidentsto OutreachMethods becomeengagedaccordingtotheirownpreferences,interests,schedules,and availability.Thesemethodsincluded: ¥ StakeholderinterviewsÐ38personswithconfidentiality ¥ RoundtablemeetingÐlaunchingtheproject ¥CitizentaskforceÐ14meetingsopentothepublic ¥ Websitepostings(www.rrsctransition.info) ¥ InterestedpartieslistÐover100stakeholdersreceivedmonthlyinformation includingelectedofficials ¥ NeighborhoodconversationsÐ11workshopshostedbyresidents,community organizations,andTaskForcemembers ¥ Projectinformationbrochure ¥ UrbanservicesguidebookÐ20-pagebookletwithinformationonurban services ¥ Communityorganizationparticipationincludingnewsletterinformationand updatesonthetransitionproject ¥ ProjectlibraryÐhousedattheRiverRoad/SantaClaraVolunteerLibrary TheTransitionTeamplannedtoconductapublicopinionsurveylaterintheprojectto gainabroadunderstandingofresidentperspectivesthroughstatisticalsampling.The surveywasscheduledtooccuraftercompletionoftheDraftFramework.However,with DavidReed&AssociatesÕinvolvementendinginthesecondyear,thesurveywasnot conducted. ItshouldbenotedthattheOspreyGrouprecentlyconductedstakeholderinterviewsfor theproposedWestEugeneParkway,andtheconsultantsfoundissuesofdistrustand lackofopennessthatcomplicatecollaborativeplanninginthecommunity.When dealingwithcomplexissues,OspreyGroupnotedthatEugeneresidentstendto Òratherfightthanfindasolution.ÓTheRR/SCTransitionProjectencounteredsimilar RIVERROAD/SANTACLARA 12 TRANSITIONPROJECT PublicOutreach issueswithrespecttocommunitytrustandwillingnesstoengageinacollaborative process.Theseissueswerevalidatedthroughextensivepublicoutreacheffortsthat weremaintainedthroughoutthedurationoftheplanningprocess. ConcurrentwiththebeginningoftheTransitionProject,twoproposedCityprojects Neighborhood werevettedinRiverRoadandSantaClaraatpublicmeetings,whichcontributedtothe OutreachContext levelofdistrustbetweentheCityandRR/SCresidents.Theseproposalsbecamevery controversial,reflectedthedifficulthistorybetweenresidentsandtheCityofEugene, andillustratedattheoutsetthatconductingneighborhoodoutreachfortransition planningwouldbedaunting. First,theCityprojectproposedalandswapthatwouldhaveresultedinanew communityparkinSantaClaraaspartofalargeneighborhooddevelopmentproject. Althoughtheproposalwassubsequentlywithdrawnduetointenseoppositionfrom localresidents,apositiveoutcomeofthecontroversywasthecreationofagroupof citizenswhoformedtheSantaClaraCommitteeforSensibleParksandOpenSpaces. ThisgroupbecameaveryorganizedandcommittedandinfusedtheSantaClara CommunityOrganizationwithnewmembersandenthusiasmforcommunity involvement. ThesecondCityprojectwasaproposaltoimprovetourbanstandardsamajor collectorstreet,RiverAvenue,locatedintheRiverRoadcommunity.Extensive oppositiontotheproposeddesignresultedinanegotiateddesignprocess,withmajor stakeholdersworkingcollaborativelywithCitystafftocometoagreementona preferredalternative. TheOutreachChallenge Thesecontroversialprojects,plusthefactthatpasteffortstogaugepublicopinionin RiverRoadandSantaClarafocusedonlyontheissueofannexation,gavedirectionto theTransitionTeamforplanninganeighborhoodoutreachprocess.Inparticular,it becameevidentthat noformalstructureexistsforinvolvingthetwocommunities .Itwasalsoapparentthatresidentswant inanopenandtransparentpublicprocess opportunitiestobecomeengagedandhaveavoiceindecisionsthataffectthefutureof theircommunitiesÐwhethertheyarein-Cityornon-Cityresidents. AndhereinliesthechallengefortheCityofEugene.Ninecity-fundedprojectswere underwayinRiverRoadandSantaClaraduringtheTransitionProjectincluding extensiveparkandopenspaceacquisition,astormwaterbasinmanagementplan,a historysurveyfortheRiverRoadcommunity,anaturalresourceconservationplan, andadraftcomprehensivepark,recreation,andopenspaceplan.Yet,ifmostofthe residentsliveinunincorporatedareas,howdoestheCitynotonlymaintainopen communicationsbutalsoactivelyengageallcommunityresidentsintheseprojects? CommunityOrganizationsÐLimitedRecognitionandNewsletters EarlyintheTransitionProject,theTransitionTeamrecognizedthatexistingCitypolicy gavelimitedrecognitiontotheRiverRoadandSantaClaraCommunityOrganizations, withreducedfundingthatprohibitednewsletterdistributiontonon-Cityresidentswho comprisethemajorityofthepopulationofthetwocommunities.TheTransitionTeam madeaformalrequesttoLaneCountycommissionersfornewsletterfunding assistance,withoutsuccess.SubsequentlytheEugeneCityCouncilprovided additionalfundingandforthefirsttimethetwocommunityorganizationsdistributed newsletterstoallresidentsinRiverRoadandSantaClara,whethertheyresidedwithin theCitylimitsornot. GiventhefactthatnopriororganizedpublicoutreachprocesshadtakenplaceinRiver Neighborhood RoadandSantaClara,aTaskForcesubcommitteeandtheTransitionTeamÕs Conversations communityplannerworkedforseveralmonthsdesigningapublicoutreachapproach tailoredtotheneedsoftheTransitionProject.TaskForcemembersandneighborhood leaderswereengagedinhostingandparticipatinginaseriesofsmallneighborhood 13 RIVERROAD/SANTACLARA TRANSITIONPROJECT PublicOutreach conversations.Specialeffortwasmadetoachievebalancedrepresentationincluding socialandeconomicdiversity,andaworkshopwasspeciallydesignedforunder- represented,minorityresidents.Twopilotswereconductedearlyontotesttheformat andobtainfeedbackfromparticipants. Inthewinterof2006thecommunityplannerworkedwiththeRR/SCTaskForceto conduct11publicworkshopsinvolving149residents.Slightlymoreparticipantswere fromSantaClara(54%),and69%ofthoseattendingresideinunincorporatedareas insidetheUrbanGrowthBoundary.Thegoaloftheoutreachprocesswastoidentify corevaluesandprioritiesofRiverRoadandSantaClararesidentsinrelationtotheir neighborhood. Theprojectaskedresidentstoanswerthreequestionsabouttheirneighborhood: 1.Whatdoyoulikeorvalue? 2.Whatwouldyouliketochange? 3.Whatisyourmostpressinghopeorconcernforthefuture? WorkshopResults Residentresponsesidentifiedlanduse,governance,parksandrecreation,and transportationaspriorityissues.ResultsshowthatresidentsinbothRiverRoadand SantaClarasharethesevaluesandopinions. SummaryResultsofNeighborhoodConversations Residentsvaluefriendlyneighbors,ruralqualities,current densitylevels,andalternativetransportation(walk,bus,bike) Residentswouldliketoseechangesindevelopmentpatterns andtraffic. Residentsidentifythesepressingissuesforthefuture: development,density,ruralqualities,representation,and annexation. Theresultsalsoindicatethattherearedistinctdifferencesbetweentheprioritiesofthe twocommunities.Inthepasttenyears,SantaClarahasexperiencedfast-paced developmentoflarge-scaleresidentialsubdivisions.Residentsareconcernedabout trafficandthelackofparksandrecreationfacilities.TwomainprioritiesforSantaClara residentsareannexationissuesandthescopeandimpactofdevelopment. RiverRoadhasexperiencedfewlarge-scaleresidentialsubdivisionsandmoresmall- scaleinfilldevelopments.RiverRoadresidentsaremotivatedtoprotectwhatthey value:currentdensitylevels,ruralqualities,andtheRiverRoadParkandRecreation District.Residentsareprimarilyconcernedaboutdevelopmentandtheirprioritiesare densityissues,annexation,andpreservingruralqualities. Annexationasagovernanceissuesurfacedasthesecondhighestpriorityforresidents inbothRiverRoadandSantaClara.Unincorporatedresidentsworryaboutthefuture, includinghighertaxratesaffectingtheviabilityofspecialservicedistrictssuchasthe RiverRoadParkandRecreationDistrict.Cityresidentsareconcernedaboutthe 14 RIVERROAD/SANTACLARA TRANSITIONPROJECT TransitionandHeritageWhitePaper TTransitionandHeritageWhitePaper TheCommunityTransitionandHeritageWhitePaperwasinitiallypreparedbythe Purposeand TransitionTeamÕsmunicipalgovernancespecialistduringthesummerof2005,and refinedinearly2006.TheWhitePaperoutlined55potentialtransitionandheritage Objectives initiativesandoptionsforRiverRoadandSantaClara.ThepurposeoftheWhite PaperwastostructureaprocessfortheTaskForce,theCityofEugene,localspecial servicedistricts,andotherserviceproviderstoefficientlyaddresscomplexservice deliveryissues,andtocreativelyconsidertransitionalternativesforthetwo communitiesexperiencingrapidurbanization.(SeeAppendixFforthecomplete TransitionandHeritageWhitePaper). ThegoaloftheWhitePaperwastofindcommongroundbyidentifyinginitiativesthat fosterandsupportarealsensethaturbanizationandeventualfutureannexationdo notnecessarilymeananabsolutelossofheritage,control,andcommunity.Mostofthe serviceoptionsoutlinedintheWhitePaperareÒannexationneutralÓÐtheycouldbe viablestrategiesforthecommunityorlocalgovernmentsunderanycircumstances includingthoseinfluencingthepaceofannexation. Tofostercreativedialogueonurbanizationimpacts,andtoreachmutualagreementon themosteffectivewaystoaccommodateneedsofserviceprovidersandtheRiver RoadandSantaClaracommunities,transitionandheritageobjectiveswere emphasized: :topreserveand/orenhancetraditionalcommunitygovernance, Heritage FindingCommon character,appearance,andhistoricinstitutionsasurbanizationand Ground annexationtakeplace :toachieveasmoothandorderlytransitionofservices,exploring Transition creativemethodsandpracticesforthemosteffectiveandefficientdeliveryof urbanserviceswithminimalimpactsonresidents PriorannexationandurbanizationinRiverRoadandSantaClarahavebeendrivenby Transition factorssuchasthedemandforextendingurbanservicestonewdevelopments,utility Issues extensions,developmentofindividualexistinglots,propertyownerpreferences,City growthmanagementpolicies,andneedsoflocalgovernmentsandserviceproviders. Theresultisacheckerboardofgerrymanderedandsometimesisolatedincorporated territory,oftenassmallasindividual5,000squarefootresidentiallots. FortheCityofEugeneandotherserviceproviders,thissituationcanmakeservice deliverydifficulttomanage,andraiseissuesofserviceandtaxequitybetweenin-City andunincorporatedresidentsandpropertyowners.Mattersarefurthercomplicatedby thenumberofserviceprovidersinthetwocommunities,sometimeswithoverlapping and/orconfusingresponsibilities. KeyTransition Issues Therangeoflandusesacrossthetwocommunitiesisalsodiverse,includinglarge residentiallots,agriculturallandsandhomes,newersubdivisions,commercialcenters andolderbusinessuses,agingandnewpublicinstitutions,publicparklands,river floodplainandriparianareas,andanadjacentrailroadmaintenanceyard(outsidethe studyareaboundary). Annexationandurbanizationoftenbringnewandmorereliablewaterandsewer services,pavedroads,improvedpublicsafetyservices,andnewcommunityfacilities suchaslibrariesandparks.Nonetheless,urbanizingareascanalsospellchangein RIVERROAD/SANTACLARA 16 TRANSITIONPROJECT TransitionandHeritageWhitePaper theformofmorenoise,busierstreets,higherdensity,lossoftreesandvacantareas valuedfortheiropenspace,demiseoflongstandinginstitutions,andÒforcedÓ connectionstosewerandwaterlinesbasedonpublichealthconcerns.Forthose alreadylivinginareasrecentlyannexedorwhereannexationiseminent,thesechangescan quicklyÒsourÓwhateverpositivebenefitsannexationcanbring.Developmentmay exacerbatefeelingsofanerosionoflivabilityandcommunityheritagethatmayhavecome withpriorannexations. AstheCityofEugene,otherserviceproviders,andtheRiverRoadandSantaClara communitiescontemplatefutureincorporationofremainingterritoryintheUrbanGrowth Boundary,thetransitionandheritageinitiativewasviewedasanoptimumwaytoassure thatwhenandifthesecommunitiesjointheCity,thattheydosowiththeleastdislocation anddiscontentpossible. Publishedmaterialsincludingthe2002RiverRoad/SantaClaraUrbanServicesCommittee ReportandtheECONorthwestFiscalAnalysiswerereviewedandfactualsummaries preparedforselectedurbanservices.Serviceproviderswerethenaskedtoreviewthe summariesforaccuracyandtoupdatethem.Theconsultingteamalsogleanedinformation fromobservationsandconcernsoftheRR/SCTaskForce,andmonitoredothercommunity forumswhereservicedeliveryquestionsandissueswerediscussedanddebated. Structure, Serviceoptionswereidentifiedfortheirpotentialtoaddressissuesandconcernsbasedon theconsultingteamÕsexpertiseandexperience;byconsideringexistingservices,activities Process,and andprogramsofeachoftheserviceproviders;byresearchingandunderstanding Outcomes applicablesolutionsdevelopedinothercommunitiesinOregon;andbylisteningcarefullyto concernsexpressedatRR/SCTaskForcemeetingsaswellasinotherpublicmeetings. (SeeAppendixFforassumptionsandlimitationsoftheWhitePaper). Fifty-fivepotentialoptionsemergedfromthisprocessspreadacrosstwelvedifferent services,includingalistofadvantagesandchallengesformostoftheoptions,andseveral withsectionsdescribingapproachestakenbyothercommunities. Transition&HeritageWhitePaper ServiceType FireProtectionandEmergencyMedicalServices RecreationServices LibraryServices LandUsePlanning NeighborhoodGovernance Streets Parks,OpenSpace,NaturalAreas SurfaceWaterManagement(Stormwater) PublicSafety(PoliceProtection) WaterSupplySanitarySewer SoldWasteCollectionandRecycling AlllocalserviceproviderswereprovidedanopportunitytoreviewdraftsoftheWhitePaper, andtomakecommentsontheaccuracyandfeasibilityoftheoptionspresented.Thenext stepwasfortheRR/SCTaskForcetoreviewtheoptionsandtomakechoicesthatwould bestsupportcommunitytransitionandheritagepriorities(SeeTransitionandHeritage FrameworkChapter). AfterundertakingresearchfortheWhitePaperandidentifyinginitiativesandoptionsthat Unifying mayworkfortheCityofEugene,otherlocalserviceproviders,andthecommunitiesofRiver Themes RoadandSantaClara,sixcategoriesweresuggestedaspotentialÒunifyingthemesÓfor additionalconsideration.Thesecategoriesweredescribedashavingpromisefororganizing preferredoptionsthatcutacrossoneormoreserviceareas. 17 RIVERROAD/SANTACLARA TRANSITIONPROJECT TransitionandHeritageWhitePaper UnifyingCategoriesorThemes optionsthatpreserveorperhapscreateprocessesthatprovide GovernanceÐ residents,businessowners,andlandownersintheRiverRoadandSantaClara neighborhoodswithasenseofcommunityandinsuretheyhaveavoiceover theirfuture Ðoptionsthatpreserveorcreateinstitutionssuchascommunity Institutions centers,volunteerfirebrigadesthatsustainorstrengthendistinctneighborhood identity Ðoptionsthatpreserveorcreateoutletsandprocessesfor Communications communicatingwithinneighborhoods,notonlytoinformbutalsotofostera senseofneighborhoodidentity Ðoptionsthatallowurbanizingareastopreservesomeofthe Landscape physicalattributesofamoreruralorsuburbancommunitysuchasdifferingstreet standards,openspace,preservationofagriculturallands,lotandhousingtypes Ðoptionstophaseortimeincorporationwithinthebenchmarkof Phasing feasibilityunderOregonstatutes.NotnecessarilylimitedtophysicalphasingÐ forexamplephasingofaCityfeeordeferringanassessmenttoafuturedate Ðoptionsforservicesthataredesignedprimarilytoenhancecurrent Services provisionsinurbanizingareasinwaysthataddressexistingcommunityneeds, notthoseofthefullydevelopedÒpost-incorporationÓcommunity Asidentifiedinthe2002UrbanServicesCommitteeReport,thefourbenchmarksof Trust, Benchmarks wereusedtotestrelevanceandpotentialeffectivenessof Voice,Equity,andCollaboration eachoftheoptionsandinitiativeslistedintheWhitePaper.Thesebenchmarksprovideda uniqueopportunitytofilterresultsoftheWhitePaperthroughthelensofcommunity stakeholderswhogaveconsiderablethoughtintheirdiscoveryprocesstourbanizationand annexationissuesandwhatisperceivedasbeingunsatisfactoryinthepast. Afifthbenchmarkusedwas StatutoryandPolicyFeasibility. 18 RIVERROAD/SANTACLARA TRANSITIONPROJECT TransitionandHeritageFramework TheTransitionandHeritageFramework TheTransitionandHeritageFrameworkisthefoundationforguidingthefutureofthe Purposeand RiverRoadandSantaClaracommunities,basedonthestrategicplanningprocess Process managedbyDavidReed&Associatesandincollaborationwiththe12-member RR/SCTaskForce,CityofEugenestaff,andotherserviceproviders. TheFrameworkplanningprocessprovidedastructureforbetterunderstandingof complexgovernanceandservicedeliveryissues,andforselectingandorganizinga setofpossibleoptionseitheridentifiedorstimulatedbytheTransitionandHeritage WhitePaper.Throughaseriesofiterativeexercises,theTaskForcedevelopedan initialtemplateofpotentialthemes,strategies,andactions,andrefinedthemovera nine-monthperiod. Concurrentlythroughextensivepublicoutreachmeetingsincluding11neighborhood workshops,communityprioritiesandsensibilitieswereintegratedintotheFramework processthroughdeliberationsoftheTaskForce.Thisapproachresultedintesting, validating,andrefiningtheFrameworkinordertoreflectthecommunityvisionand goalsforthefuture.TheTaskForceconductedtwoseparateworksessionsto generateideasforacommunityvisionandgoalstatements.TaskForcebrainstorming andneighborhoodoutreachresultsshowedsignificantsimilarity. Importantly,theFrameworkprovidedanefficientwayforlocalserviceprovidersto engageintheprocess,toaddtheirinputtoTaskForceideas,andtodevelop consensusorgeneralagreementonstrategicinitiativesbasedonfactorssuchas feasibility,urgency,andimportancetothecommunityandtoserviceproviders.The Frameworkwasdistributedtoallserviceprovidersincludingthespecialservice districts,LaneCounty,andtheCityofEugene. Toobtaindirectfeedbackandinvolvementofserviceproviders,theTransition ManagerandtheTransitionTeamÕsmunicipalgovernancespecialistreviewedthe DraftFrameworkwithstaffoftheRiverRoadParkandRecreationDistrict,theSanta ClaraFireProtectionDistrict,LaneRuralFireandRescueDistrict,andCityofEugene staffandexecutivemanagers.Citystaffprepareda20-pagereportrespondingtoall proposedstrategiesandoptionsoutlinedintheDraftFramework,rejectingonlytwo strategiesoutrightandexpressingwillingnesstofurtherexploreothers.(Seemeeting notesinAppendixG). TheTaskForceidentifiedthreeofthesixÒunifyingthemesÓdescribedintheWhite Framework PaperashavingthemostapplicabilitytoprioritiesforRiverRoadandSantaClara Themes residents: sustainthevisualandfunctionalÒlookandfeelÓandrural LandscapeÐ heritageoftheRiverRoadandSantaClaracommunities Ðsustainandinsomecasesexpandkeycommunityinstitutions Institutions Ðsustainandstrengthenthelongstandingtraditionoflocal Governance governmentandself-determination RIVERROAD/SANTACLARA 19 TRANSITIONPROJECT TransitionandHeritageFramework ThesethemesrespondedtothetwomajorobjectivesoftheWhitePaper:topreserve thatarehighlyvaluedbythetwocommunities,andtoachievea heritagequalities smoothandorderly transitionofservices. Amendingthe The1986ÒRiverRoad-SantaClaraUrbanFacilitiesPlanÓemphasizedlanduseand publicinfrastructure,andwasbasedinlargepartonexistinglanduse,designated CommunityPlan uses,goals,andpoliciesintheMetroPlan.A15-membercitizenadvisorycommittee helpedpreparethePlan,whichincludesfindings,policies,andactions.However,since theFacilitiesPlandidnotincludeacommunityvisionstatementorgoals,theTransition andHeritageFrameworkprovidesvisionandguidanceforamendingtheplantoreflect outcomesoftheFrameworkplanningprocess,especiallythepreferredfutureforRiver RoadandSantaClara. KeyelementsoftheFrameworkinclude: KeyElements fivequalitiesofRiverandSantaClarathatmake UniquenessStatementÐ thetwocommunitiesdistinctivelydifferentfromotherEugeneneighborhoods Ðapreferredvisionofthefuture,reflectingcorevaluesand VisionStatement beliefsheldbyRiverRoadandSantaClararesidents Ðtengoalsthatprovideguidepoststofulfillthepreferred GoalStatements vision Ðspecificdirection,initiatives,tasks,activities,or StrategiesandActions mechanismstoeitherachievethegoalsortofacilitateexecutionand implementation TheRiverRoadandSantaClaracommunitiesexhibitanumberofspecialattributes thatshouldbeconsideredasunderpinningsforthefollowingVision,Goals,andsetof StrategiesandActionsforthetwocommunities.TheseÒUniquenessÓattributesinclude thefollowing: Community CommunityGrowthandGovernance UnlikeotherareasofEugene,theCityexpandedouttothepreviouslyexisting Uniqueness communitiesofRiverRoadandSantaClara,whichdevelopedformanyyearsas independent,unincorporatedareas.Asaresult,theRiverRoadandSantaClara communitiesformedandcontinuetosupportseverallocalinstitutionstomeetlocal needs.Residentsvaluethefivespecialservicedistrictsthatstilloperatetodaywith theirlegacyofpublicserviceandneighborhoodgovernance. Yet,thefutureofthesedistrictsistenuous,givenanerodingtaxbaseasnew developmentisannexedtotheCity.Reflectingthishistoryofindependentgrowth, RiverRoadandSantaClaraarealsolargerinphysicalsizethanmostareasofEugene formallyidentifiedbytheCityasÒneighborhoods.ÓIncrementalannexationandrapid urbangrowthcontinuetodramaticallychangeRiverRoadandSantaClara.According toCityofEugeneandMetroareaplans,theRiverRoadandSantaClaraBasinis projectedtobe51%coveredwithimpervioussurfaceatUGBÒbuild-out,Óafigurethat ishigherthanforanyotherareaofEugene. CheckerboardDevelopment TheRiverRoadandSantaClaracommunitiesarealsouniquebecauseofhistorical andcontemporarycheckerboardsettlementanddevelopmentpatterns.Todaythese characteristicsareevidencedby: Remainingvisagesofaruralheritageincludedistinctivearchitecturalstyles ofbuildings,largelots,orchards,heritagetrees,Òcountry-styleÓdrainageand streets,andolderneighborhoods,withagrowingoverlayofnewsubdivisions andinfilldevelopment. 20 RIVERROAD/SANTACLARA TRANSITIONPROJECT TransitionandHeritageFramework Approximately29%ofRiverRoadresidentsand41%ofSantaClararesidents liveintheCity,butwithinavariedandgreatlynon-contiguouspatternof annexedproperties. Servicesareprovidedbytwolocalwaterdistricts,tworuralfiredistricts,a neighborhoodparkandrecreationdistrict,aregionalwaterauthority,andby theCityofEugeneandLaneCounty.Threeschooldistrictsalsoservethe RiverRoadandSantaClaracommunities. LandscapeQualities LandscapequalitiesoftheRiverRoadandSantaClaracommunitiesarealso distinctive: SixmilesoftheWillametteRiverwithitssloughsandfloodplainformthe easternboundaryofRiverRoadandSantaClaranorthtotheconfluencewith theMcKenzieRiver.Thisisvaluedasauniqueandhighqualitynaturalarea andforthespecialrecreationalopportunitiesitprovidestothetwo communities. Agriculturallandsandremnantorchards,streamsandripariancorridors, statelystreetandheritagetrees,andruralstreetsandneighborhoodshelp RiverRoadandSantaClararetainmuchoftheiroriginalruralcharacter. SantaClaraissurroundedbyandintegratedwithmorehigh-valueagricultural landsthananyotherpartoftheCity. Remainingstreams,pervioussoils,andoldersurfacewaterdrainage featuresinthetwocommunitiesareaspecialopportunitytoretainandcreate sustainable,non-pipeddrainagesystemsforthefuture. ParksandOpenSpace ComparedtomostofEugeneÕsofficialneighborhoods,RiverRoadandSantaClaralag farbehindindevelopedneighborhoodparksandaccessibleopenspaces.Including Cityandnon-Cityresidents,about18%ofthepopulationwithintheEugeneUGB currentlyresidesinRiverRoadandSantaClara,whereasonlyabout4%ofthetotal parksystem(113acres)servesthisarea.NocommunityparkthatfullymeetsCity standardsexistsineitherRiverRoadorSantaClara.Onlytwosmallboatlaunches providepublicaccesstotheWillametteRiveradjacenttotheSantaClaracommunity, andtheWillametteRiverGreenwayislimitedtotheRiverRoadcommunity. OpportunityforFutureCollaboration RiverRoadandSantaClaraareuniquebecauseofthehistoricallycontentious relationshipwiththeCityofEugene,rootedinpartbythedebateinthe1980soverthe ÒforcedÓextensionofsanitarysewerstothetwocommunities.RiverRoad,SantaClara andtheCityhavealsobeenatoddsoverotherissues,andthecontinuedstrong oppositionbysomeresidentstoannexationreflectstensionsbuiltupovermanyyears. Yet,residentsarepassionateaboutthefutureoftheircommunities,haveahigh interestinsoundplanning,andseekresolutionthroughcollaborationwithpublic officials.ThisRiverRoadandSantaClaraTransitionandHeritageFramework representsafirstmajorstepinsuchcollaboration. TheRiverRoad/SantaClaraTaskForcecraftedavisionstatementforRiverRoadand SantaClara,basedonsensibilitiesandprioritiesgeneratedbytheneighborhood conversations,considerationoffiveuniquequalitiesofthetwocommunities,andTask Forcebrainstorming. 21 RIVERROAD/SANTACLARA TRANSITIONPROJECT TransitionandHeritageFramework ThiscommunityvisionstatementthatemergedfortheTransitionandHeritage FrameworkreflectscorevaluesandbeliefscommontoRiverRoadandSantaClara residents.Itisalsorecognizedthattherearedistinctlandscapequalitiesandpriorities thatareinherenttothetwocommunities.Forexample,inSantaClaratheWillamette RiverisoutsidetheUrbanGrowthBoundary,whileitistotallywithintheUGBinthe RiverRoadcommunity.Thesediscretecharacteristicsandvaluesshouldbe recognizedastheFrameworkisrefinedandcommunityplanningcontinues. CommunityVision RiverRoadandSantaClara VisionStatement RiverRoadandSantaClaraarecommunitieswhereresidentsvaluetheir ruralandagriculturalheritageandtheirindependence,respondingto changewithpassion,imagination,andcan-dospirit.TheCityofEugene, LaneCounty,andneighborhood-basedspecialservicedistrictsworkin harmonywithRiverRoadandSantaClararesidentstoprovidefor responsivegovernanceandefficientprovisionofpublicservicesasthe neighborhoodsgrowandurbanize. RiverRoadandSantaClaracommunitiesmaintainandfosterhealthy,safe, andgreenneighborhoodsthatarefamilyfriendly,promoteneighborliness, andrespectandpreservecommunityheritage,diversity,andlandscape qualities.Thisisreflectedinalargenetworkofparksandopenspaces, abundanceoftrees,gardensandnaturalareas,highqualitysoils,healthy streams,andothernaturaldrainagesystems.Olderandnewerhomesand businessesareharmoniouslyintegratedintocommunityneighborhoods, andthereisdiversityandchoiceincommunityservicesandtransportation. RiverRoadandSantaClaraareconnectedtotheWillametteRiverasa specialplaceforwalking,bicycling,andenjoyingnature.Neighborhoodsare alsointer-connectedwithlocalstreetsandsidewalks,pathwaysand bikeways,andparksandopenspaces.RiverRoadandSantaClaraeach containseveralattractiveandauthentic-feelingneighborhoodcentersthat arepedestrianfriendlyandprovidebasicneighborhoodserviceswithina one-milewalkingdistanceofmostresidents,aswellaspublicspacesand amenitiesthatencourageneighborhoodcivicinteractions,socialgatherings, shopping,andentertainment. RiverRoadandSantaClararesidentsareproudofthepartnershipthey havedevelopedwithotherlocalandregionaldecision-makers,workingin collaborationtomaintainastrongsenseofcommunityandunique neighborhoodidentity. 22 RIVERROAD/SANTACLARA TRANSITIONPROJECT Goals ThefollowingtenGoalsweredevelopedandagreeduponinordertoprovidedirection forachievingideasembodiedintheVisionStatement.Thesegoalswererefined throughextensivediscussions,andfinallyavote,oftheTaskForce. 1.Sustainlong-establishedcommunitytraditionsofself-governanceandself- determinationinRiverRoadandSantaClara,explorecreativeoptionsand alternativestrategies,andhelptosustainandwherepossibleexpandlong- establishedcommunityinstitutionssuchastheparksandrecreationandfire protectionspecialservicedistricts. Goals 2.Createanenvironmentforachievingthehighestlevelofpublictrust,actively engagingresidentstoresolvepastissues,strengtheningandbuildingcommunity identity,fosteringinclusivepublicdecision-making,andworkinginpartnership towardthepreferredfuturefortheRiverRoadandSantaClaracommunities embodiedbythisTransitionandHeritageFramework. 3.Developandadoptneighborhood-basedcommunityplansandprogramsforthe RiverRoadandSantaClaracommunities,includingacommonvision,goalsand asetofstrategicimplementingactions. 4.StrengthenandexpandtherolesoftheRiverRoadandSantaClaraCommunity Organizationsinlocalgovernanceanddecision-making. 5.Establishandmaintainstableandlivableneighborhoodsthatsustaindistinct communitycharacter,connections,andheritage;andthatprovidefordiverse housingchoices,invitingopenspaces,recreationalopportunities,socialactivities, andneighborhood-basedcommercialandotherservicesinachildandfamily friendlyenvironment. 6.Guidegrowthinawaythatstrengthensandpreservesthecharacterofexisting neighborhoods,andsupportssustainabledevelopmentwithdesignexcellence andcreative,environmentallysoundplanning. 7.Acquireandpreserveparks,naturalareas,andopenspaces;andprotect remainingagriculturallands,andheritagefeaturesandpatterns. 8.PreserveandrestoretheWillametteRiverandGreenwayasanopenspace corridorandenhancetothemaximumdegreepossiblethevisual,physical,social, andpedestrianconnectionsbetweentheriverandtheRiverRoadandSanta Claracommunities;preserveandrestorelocalstreamcorridors,smallerdrainage ways,roadsideditches,andthesoilsandtreesthatfunctionastheareaÕsnatural drainagesystem. 9.MaketheRiverRoadthoroughfarethecentralunifyingratherthandividing elementoftheRiverRoadandSantaClaracommunities;andprovideforother improvementsthatmakeneighborhoodsconnected,safe,accessible,and walkable. 10.Ensuretheprovisionofqualitypublicservices,bypartneringwithandbetween residents,localspecialservicedistricts,theCityofEugene,LaneCounty,and othergroupsandjurisdictionstoimplementthisTransitionandHeritage Framework. 23 RIVERROAD/SANTACLARA TRANSITIONPROJECT StrategiesandActions Elevenstrategies(numbered)and38actions(lettered)providespecificdirectionfor implementingtheRiverRoad/SantaClaraTransitionandHeritageFramework, organizedwithinthethreethemesofCommunityGovernance,Community Landscapes,andCommunityInstitutions.Refinementofthesestrategiesandactions couldincludeasortingexercise,identifyingprioritiesanddeterminingiftheyapplyto bothcommunities. CommunityGOVERNANCE Strategiesand Sustainandstrengthenthelongstandingtraditionoflocalgovernanceandself- determinationintheRiverRoadandSantaClaracommunitiesbypartneringwith Actions appropriatepartiesandimplementingthefollowingFrameworkStrategiesandActions: 1.DevelopandAdoptCommunityPlans(s),AgreementsandPrograms A.ContinuetheRiverRoad&SantaClaracommunityplanningprocess. B.Developandadoptplan(s)andimplementationactionsfortheRiverRoadand SantaClaracommunitiesinpartnershipwithlocalinstitutions,suchastheCity, County,andcommunity-basedspecialservicedistricts. C.Inadditiontodevelopingandadoptingnewcommunityplans(s),negotiateand executenecessaryintergovernmentalagreementsandtheotherpolicies, plans,agreements,andprogramsneededtoimplementsaidcommunity plan(s)andtheseFrameworkStrategiesandActions. 2.SustainandExpandDirectCommunityGovernance ProvideforamoredirectvoiceforallRiverRoadandSantaClaracommunity residentsonCityissuesthroughthefollowingactions: A.ExpandrolesandresponsibilitiesfortheRiverRoadandSantaClara CommunityOrganizationsthroughfullCityrecognitionandbyexpanding involvementandleadershipoftheCommunityOrganizationsinneighborhood issuesontheirowninitiative. B.ExpandrepresentationforRiverRoadandSantaClaracommunityresidents onCityboardsandcommissionsbyestablishingformalrecruitmentand nominatingprocessesforsuchboardsandcommissionsthroughtheRiver RoadandSantaClaraCommunityOrganizations. C.EstablishasingleCityCouncilWardfortheSantaClaracommunity,ora singleWardencompassingboththeRiverRoadandSantaClaracommunities. D.PartneronandimplementFrameworkStrategiesandActionstosustainand potentiallyexpandkeyinstitutionsintheRiverRoadandSantaClara communities(seetheÒCommunityInstitutionsÓsectionofthisFramework). E.Develop,promote,andprovidefortargetedplan(s),incentives,andprograms fortheRiverRoadandSantaClaracommunities,andforbothin-Cityandnon- Cityresidents,thatrecognizeandrespectthechallengesoflivingin neighborhoodsundergoingsignificantgrowthandchange CommunityLANDSCAPES SustainthevisualandfunctionalÒlookandfeelÓandruralheritageoftheRiverRoad andSantaClaracommunitiesbypartneringonandimplementingthefollowing FrameworkStrategiesandActions: 1.EstablishanExtensiveProgramofParks,OpenSpaceandNaturalArea Protection,Acquisition,andDevelopment A.ImproveaccesstotheWillametteRiverGreenwaybyexpandingpublic ownershipandeasements;andbyimprovingandexpandingGreenwaytrails andotherfacilities,includingextensionoftheGreenwaytoareasnorthof BeltlineRoad. RIVERROAD/SANTACLARA TRANSITIONPROJECT 24 StrategiesandActions B.ModifyCityandCountylanddevelopmentstandardstorequireandencourage moreopenspaceandnaturalareapreservation. C.Acquire,preserve,andrestoreneighborhoodstreamcorridors,riparianareas, wetlandsandothernaturalareas;andprovideforappropriatepublicaccessto thesenaturalareas. D.Acquireanddevelopactiveandpassiverecreationalparks. E.PreserveagriculturallandswithintheestablishedboundariesoftheRiver RoadandSantaClaracommunities. 2.DevelopandImplementÒHeritageÓPlanningandDevelopmentStandards andPrograms StreetsandCirculation A.DevelopÒcontextsensitiveÓstreetdesignmodelsapplicabletotheRiverRoad andSantaClaracommunities. B.Siteandbuildmorepedestrian,masstransit,andbikewayfacilitiesto encouragewalking,bikingandbussingtowork,shop,andplay;andtobetter connectneighborhoodsandreducevehiculartravelmiles. C.SiteandbuildÒtrafficcalmingÓimprovementstoreducevehicularspeedsand Òshort-cuttingÓ,andtoimproveneighborhoodsafety. D.Limitconnectivitytopedestrian/bikewayconnectionsonspecificallyidentified olderlocalstreetsÐprimarilybutnotexclusivelyinRiverRoadneighborhoods southofMaxwellStreet,especiallywherevehicularconnectivitywouldpermit ÒbypassesÓtoandfrommajortrafficgeneratorssuchasschoolsand commercialcenters. E.MaintainolderlocalstreetsectionsandfeaturesÒas-isÓ,and/orblendnewer streetswitholderstreetfeaturesandstandards. F.Topreserveolderstreetfeaturessuchastrees,Òcountry-styledrainageÓ,and pavementwidths,limitandphaseupgradestoarterialsandmajorcollectorsas trafficvolumesincrease,and/orcreateexceptionstoCitystreetstandardsfor suchclassifications. G.Constructretro-fitimprovementssuchasgrade-separatedcrossings, additionalsignalizedgradecrossings,narrowedstreetsections,andnewtraffic calmingfeaturestomajorstreets,particularlyRiverRoad,thatcreatesafe, convenientandattractivemeansforneighborhoodresidentstovisitand patronizebothsidesofsuchstreets. NeighborhoodDesignandHousing A.PromotetheidentificationofdistinctneighborhoodswithinthelargerRiver RoadandSantaClaracommunities;andalsopromotethedevelopmentof localneighborhood-basedcommercialdistrictsandserviceswithinsuch neighborhoods. B.Establishneighborhooddevelopmentstandards,includingbuildingdesign, scale,anddensityprovisionsforinfillandnewsubdivisionhousing,which provideforbothdiversityinhousingchoiceandforcompatibilitywithcurrent neighborhoodhousingtypesandstyles. C.Usedevelopmentstandardsandstreetdesigntoabateandreducenoiseand congestionfromvehiculartrafficandmajortrafficgeneratinglandusesthatare adjacenttoresidentialneighborhoods. D.Useinnovativelanddevelopmentstandards,streetstandardsand improvements,andpedestrianandbikewaydesign,andsiteanddesignnew commercialareastoconnectanduniteneighborhoodsacrossmajorstreets, particularlyRiverRoad. HistoricResources A.ApplyrecommendationsoftheCityÕsRiverRoadcommunityhistoricsites surveyandstudy;andinitiateasimilarstudyfortheSantaClaracommunity. B.Developstreettreeandheritagetreepreservationprograms,includingthe preservationofestablishedorchardsandwoodlotswithintheRiverRoadand SantaClaracommunities. RIVERROAD/SANTACLARA TRANSITIONPROJECT 25 StrategiesandActions C.Developotherprogramsandinitiativestopreserveandrestorehistoricsites, patterns,properties,andstructuresintheRiverRoadandSantaClara communities. 3.IntegrateEnvironmentallySoundSurfaceWaterManagementProgramswith OpenSpaceandStreet/DevelopmentStrategiesandActions A.Preserveexistingstreamcorridors,drainageways,andanydesignatedÒGoal 5Ónaturalresources(underStatelanduselaws)thatareidentifiedintheRiver RoadandSantaClaracommunities. B.Prioritizestreamandassociatedripariancorridorrestoration,andthe ÒdaylightingÓofstreamsanddrainagesthathavebeenpreviouslypipedand channelized. C.UseÒgreenstreetÓdesign,bioswaledrainagesystems,downspoutdisconnects, impervioussurfacelimits,andotherÒsustainablestormwaterÓand ÒgreenfrastructureÓsolutionsinlocalhousingdevelopments,streetand subdivisiondesignandretro-fits,andinmajormaintenanceandrebuildingof localneighborhoodinfrastructure. D.GiveÒsustainablestormwaterÓandÒgreenfrastructureÓsolutionspreferencein developingandredevelopingmajorsurfacewaterconveyanceandtreatment infrastructure;andintegratesurfacewaterqualityandquantityfeaturesinto neighborhoodparks,openspace,andnaturalareas. CommunityINSTITUTIONS SustainandinsomecasesexpandkeyinstitutionsintheRiverRoadandSantaClara communitiesbypartneringonandimplementingthefollowingFrameworkStrategies andActions: 1.EstablishNew,andSustainCurrent,CommunityCentersandPublicSpaces A.Sustainexistingpubliccommunitycenterfacilitiesandpublicspacesinthe RiverRoadandSantaClaracommunitiessuchasEmeraldPark,otherRiver RoadParksDistrictfacilities,andCityparksandplaygrounds. B.Establishanewpubliccommunitycenterandrecreationalfacilitiesand servicesintheSantaClaracommunityincludingpotentiallypartneringwith privateandnon-profitorganizations. C.Provideforneighborhoodmeetingandassemblyfacilitiesinneworremodeled City,Countyandspecialservicedistrictfacilitiesandspaces,suchasfire stationsandpublicparks,and/orinleasedcommercialcenterspaces. 2.SustaintheRiverRoadParksandRecreationDistrict A.ContinueCitytransferpaymentstotheRiverRoadParksandRecreation DistrictfortheuseofDistrictprogramsandfacilitiesbyin-Cityresidents,and retroactivelyindexsuchpaymentsstartinginFY2003-04toreflecttheimpacts ofinflationandannexationontheDistrictÕstaxbase. B.ExploreavarietyofotherpartnershipoptionsbetweentheParksDistrictand theCitytosustaintheDistrictfortheforeseeablefuture. 3.ExpandRolesandResponsibilitiesforOfficialCommunityOrganizations SeetheCommunityGovernancesectionofthisFrameworkÐÒSustainandExpand DirectCommunityGovernanceÓ 4.SupportandSustainViableFireServiceVolunteerInstitutions ProvideforthetransferofboththeSantaClaraandLaneFireDistrictvolunteerfire brigadestotheCityFireserviceifandwhentheCityassumesfireprotectionand EMSforallterritorywithintheUrbanGrowthBoundarypreviouslyservedbyeither LaneFireorSantaClaraFireDistricts. RIVERROAD/SANTACLARA TRANSITIONPROJECT 26 StrategiesandActions 5.SupportImprovementstoLibraryServicesinBothNeighborhoods A.Continueandexpandin-kindsupportonthepartoftheCityandother communitymembersandinstitutionsfortheRiverRoadandSantaClara VolunteerLibrary. B.ConsiderotherprogramsandinitiativestoimprovelibraryservicesintheRiver RoadandSantaClaracommunities,includingestablishingpubliclibrary branchfacilities. 6.SupportPlannedandOrderlyTransitionsforExistingFireandWaterDistricts Identifyalternateserviceprovidersandfinancialstrategiestoavoidanyprecipitous lossorinterruptionofservice;anddevelopinterimandtransitionagreementsin advancebetweentheCityofEugene,LaneCounty,andtheRiverRoadandSanta Claracommunity-basedfireprotectionandwatersupplyspecialservicedistricts RIVERROAD/SANTACLARA TRANSITIONPROJECT 27 LookingForward LookingForward Giventhehistoryofcommunityanxietyandcomplexityofserviceandurbanization issuesintheRiverRoadandSantaClaracommunities,theTransitionProjectwas Framework managedasahighlystrategicandflexibleprocess.Evenwiththisapproach,the Intent projectwasparticularlydifficultandchallengingwiththepervasivelackoftrust associatedwithmostaspectsofdealingwiththeinevitableshareddestiniesofthe RiverRoad,SantaClara,andCityofEugenecommunities. UponreachingagreementwiththeRiverRoadandSantaClaraTaskForceand serviceprovidersonvision,goals,strategiesandactionsoutlinedintheRiver Road/SantaClaraTransitionandHeritageFramework,theoriginalworkplancalledfor administeringanopinionsurveyofresidentstovalidatemajorfeaturesofthe document. Dependingonresultsoftheopinionsurveyandfurtherrefinement,theFrameworkwas thenintendedtobecomethebasisforaRiverRoad/SantaClaraTransitionPlan.The nextphaseoftheprojectwasdesignedtofocusonidentifyingandprioritizingspecific implementingactions,andpotentiallycreatingseparateactionplansforeach community. NeartheendofthesecondyearoftheTransitionProject,theRiverRoadandSanta IntentofShiftin ClaraCommunityOrganizationsproposedtoshiftthescopeoftheprojecttoa Direction Òneighborhood-ledapproachÓincludingÒrefinementandimplementationofthe FrameworkTransitionPlan,ÓandÒtoachievemoreneighborhoodsupportfora TransitionPlan,andmoreneighborhoodcontroloverthedetailsofimplementation.Ó (ExcerptsfromtheApril25,2006memorandumtotheCityCouncilandBudget Committee).Subsequently,DavidReed&Associatescompleteditsphaseofthe projectandsubmittedthisFinalReport. FromthevantageofDavidReed&AssociatesÕTransitionTeam,manyaspectsofthis communityproposalhavemerit,especiallyemphasisonanexpandedroleforthetwo communityorganizationsintransitionplanningthatisnotonlyconsistentwiththeCityÕs NeighborhoodInitiative,butisalsoastrongunderpinningoftheTransitionand HeritageFramework.Thisshiftinapproachcouldalsoprovideanopportunityfor implementingearlierthananticipatedsomeoftheFrameworkÕshighprioritystrategies andactions. OutlinedherearepossibleÒnextstepsÓforRiverRoadandSantaClaracommunity NextSteps leaders,theCityofEugene,andotherserviceproviderstoconsiderinthetransition processforFY2007. CommunityPlanAmendment TheFrameworkvisionstatementandgoalsreflectcurrentcorevaluesofRiverRoad andSantaClararesidents,andthesecommunitysensibilitiescouldbeacknowledged asformalamendmentstothe1986RR/SCUrbanFacilitiesPlan.Manyoftheallied Frameworkstrategiesandactionsmightbeframedaspolicystatements,andin conjunctionwithadditionalcommunityplanningoutcomes,theycouldbeconsideredas eitherpotentialreplacementsand/oradditionstoexistingpoliciesintheUrban FacilitiesPlan. 28 RIVERROAD/SANTACLARA TRANSITIONPROJECT LookingForward CommunityPlanningandOutreach Onamacroscale,theFrameworkandpublicoutreachresultscanbeusedasa springboardforpreparingdiscreteplansfortheRiverRoadandSantaClara communities.Clearly,outcomesoftheneighborhoodconversationsindicatethatRiver RoadandSantaClaraaretwoseparatecommunities,eachwithitsownpriorities. Withoutplungingintoformalrefinementplanning,atargetedandfocusedprocess couldengageresidentsbyaddressingkeyneighborhoodissuessuchasinfill,density, anddevelopmentstandards. Onaprogramlevel,thereareseveralstrategiesandactionsintheFrameworkthat havespecialmeritforcontinuedpublicoutreachforbothCityandunincorporated residents.Hereareseveralforconsideration. Context-SensitiveStreetDesign PreservingtheÒcountry-styleÓofpartlyimprovedandtree-linedstreetsisahighpriority forsomeRiverRoadresidents,buttherearemanydesignandoperationalissuesthat requireresolutionfortheCitytoimplement.WorkingwithCityengineers,planners,and publicworksstaff,neighborhoodleaderscouldhelporganizepilotprojectstodevelop modificationstotheCityÕsstreetimprovementstandards,emphasizingnatural drainageratherthancurb,gutterandpipe;preservingexistingstreettreesand retainingnarrowroads,andprovidinglimitedadditionalconnectivity. StormwaterBasinPlan WithaStormwaterBasinPlannearingcompletionforRiverRoadandSantaClara,and thehighinterestofresidentsinsustainablestormwaterpracticesthatacknowledgethe rich,pervioussoilsinthearea,thereisopportunitytojoinCitystaffinadvancingbest practicesthroughpilotprojects,communityeducationandawareness,andproblem solving. Parks,Recreation,OpenSpace AccessandconnectionstotheWillametteRiver,acommunityparkandrecreation centerinSantaClara,andsustainingtheRiverRoadParkandRecreationDistrictare highprioritiesoutlinedintheFramework.Thesecanbepointsofleveragetoinfuse localresidentswithenthusiasmandcreativethinkingtoexploretheseideasand developnewwaystosustainorimproveparks,recreationandopenspaceinthetwo neighborhoods. SpecialZoningDistrict WorkwithCitystafftoexplorefeasibilityofaspecialzoningdistrictsimilartothe ChambersMixedUseareafornon-subdividedlandsgenerallysouthofHoward AvenueintheRiverRoadarea,whichcouldbedesignedtomaintainthecurrent ÒneighborhoodcharacterÓaslimitedin-filldevelopmentisallowed,usingstrategiesand actionsoftheFrameworkasdesignprinciples. MixedUseCenters WorkwithCitystafftoprovideampleopportunitiesforpublicinvolvementinplanning MixedUseCentersinRiverRoadandSantaClara,usingstrategiesandactionsofthe Frameworkasdesignprinciples. HistoricPreservation WorkwithCitystafftodeveloplanduseprotectionmeasuresforsignificanthistoric propertiesidentifiedinÒEugeneÕsHistoricRiverRoadSurvey.ÓEncouragetheCityof EugenetoseekfundingforahistorysurveyfortheSantaClaracommunity. Urban/RuralInterface WorkwithCitystafftodeterminewaystopreservetheurban/ruralinterfaceinthe SantaClaraareaattheedgeoftheUrbanGrowthBoundary. RIVERROAD/SANTACLARA TRANSITIONPROJECT 29 LookingForward AddressingIssuesofTrust Conductingalarge-scalepublicopinionsurveywouldnotonlyprovidecontextfor,and potentiallyaffirmationof,theprioritiesandgoalsidentifiedbytheTaskForce,itwould alsoprovideanopportunitytoidentifymajorissuesofconcernandwaystoaddress themfromabroad,statisticallyvalid,sectorofRiverRoad/SantaClararesidents.In turn,thissnapshotofcommunityprioritiesandconcernsmayprovidethemeansfor tacklingthepervasivelackoftrustandunwillingnesstoworkinacollaborativecontext, whichmustbeaddressedbeforesuccesscanmaterializeforanyfuturetransition planningbetweenthetwocommunitiesandtheCityofEugene. TransitionAgreementswithSpecialDistricts Transition TheFrameworkidentifiesboththeRiverRoadParkandRecreationDistrictandthe SantaClaraFireProtectionDistrictasserviceprovidersthataremostlikelytobe Implementation negativelyimpactedbycontinuedurbanizationandnewdevelopmentinRiverRoad andSantaClara,Adoptingnewintergovernmentalagreementsshouldbehigh prioritiesfortheCityofEugeneandthetwospecialdistrictstocreativelyaddressmajor issuesandexploreoptions,givepredictabilitytodistrictstaffandboards,andprovide fororderlyandefficienttransitions.Tocompletethetransitionprocess,rationalsteps shouldalsobedevelopedfordissolvingthetwolocalwaterdistricts. AnnexationPlanandPolicies Withoutanopinionsurvey,thereisnobasisforscientificallydetermininghowresidents inRiverRoadandSantaClarapresentlyviewannexationasacommunityissue, especiallyintermsofwhetherornottheFrameworkandsubsequentimplementation ofacommunityvision,goals,strategiesandactionscouldbeseenasaÒquidproquoÓ andgoodfaitheffortonthepartoftheCitytobecomeapartnerinthetransition process. Nevertheless,itnowappearstimelyfortheCityofEugenetoprepareanannexation planandascheduleforboththeRiverRoadandSantaClaracommunities.Theplan shouldexplorefeasibilityofspecialincentivesforresidentssuchastaxdefermentto easetheirownÒtransition.ÓClearpoliciesshouldbevettedandadoptedintermsof specificannexationstrategiesandpractices,includingstreetright-of-wayannexations. TheissueofapublicvotehassurfacedmanytimesthroughouttheTransitionProject, aswellastheCityÕsintentwithrespecttoislandscreatedbyincrementalannexation, andtheseissuesshouldbeaddressed. TheCityÕsdevelopmentofanannexationplancouldbeanintegralpartofacontinued publicoutreachprocessmanagedbythecommunityorganizations,witheducationand awarenessonMetroPlanpolicies,StatewidePlanningGoal14(Urbanization),and statelawregardingannexationrequirements,responsibilitiesandobligations.Benefits ofannexationcouldalsobeidentifiedandcommunicated,includingavoicefor residentsthroughelectedCityofficials. Settingprioritiesandidentifyingachievableprojectswillbethemostdifficultdecision Setting facingcommunityleadersastheydevelopaworkplantocontinuecommunityplanning Priorities inRiverRoadandSantaClara.Tobesuccessful,oneover-ridingconsiderationwillbe importanttoevaluatewhenidentifyingprojects:thosethatcoordinatewithState planningrequirementsandCityandMetroPlanpoliciesorprogramswillhaveahigher levelofpotentialsuccessthanthosethatwouldrequiremodifications. Finally,thesecriteriaservedtheFrameworkdecision-makingprocesswellandshould alsobeconsideredinsettingpriorities: Ðrealisticideas,thoseconsideredmostachievable Feasibility Ðopportunitiesforegoneifnotaddressedintheimmediatefuture Urgency Ðtothecommunityandtoserviceproviders Importance RIVERROAD/SANTACLARA TRANSITIONPROJECT 30 LookingForward AftertwoyearsofworkingintheRiverRoadandSantaClaracommunities,the Conclusions TransitionTeamhasdrawnanumberofconclusions. Futureplanning,negotiations,anddiscussionsinRiverRoadandSantaClarawill likelycontinueinadistrustfulclimate.Asothershavefound,therearefewexamplesin Eugeneofhighlysuccessful,collaborativeprocesses,particularlyoncomplexissues. Tomoveforward,thelevelofdistrustmustbelessenedtogivecreativeideasan opportunitytogerminate.Someresidentsseemweddedmoretothechallengesfacing theRR/SCarea,ratherthanengagedinconsensusbuildingandproblemsolving. AstheOspreyGroupnoted,itisimportanttoengagetheÒradicalmiddleÓÐcitizens whoarewellrespected,civicminded,whobringobviouscredibilityandstrong commitmenttothecommunity. Inthisregard,astatisticallyvalid,broadpublicopinionsurveyshouldbeconductedto ensurethatviewsofalargesectorofresidentsarecapturedwithrespecttoissuesof concerntotheRiverRoad/SantaClaracommunities.Withoutabroadoutreachand opinionsurvey,thefutureofthetransitionprocessisvulnerabletobeingunduly influencedbyasmall,vocal,andwell-organizedgroupofactivistsintheRR/SCareas. RIVERROAD/SANTACLARA TRANSITIONPROJECT 31 References References Bardsley&Neidhart,Inc.1990.ÒRiverRoadResidentsÕViewsofAnnexationÓ RiverRoadand SantaClara CityofEugene.2006.ÒDraftRiverRoad/SantaClaraStormwaterBasinPlan.ÓPublic WorksEngineering References CityofEugene.2005.ÒEugeneÕsHistoricRiverRoadÓ CityofEugene.2003.ÒNeighborhoodAnalysisforRiverRoadandSantaClaraÓ CityofEugene.2002.ÒFinalReportandRecommendations:RiverRoadandSanta ClaraUrbanServicesCommittees.Ó CityofEugene.2002.ÒFireServiceinSantaClara:Past,Present,andFutureÓ CityofEugene.2001.ÒSpecialDistricts:AReviewofSpecialDistrictsasaMeansto DeliverUrbanServicesintheEugene-SpringfieldMetropolitanAreaÓ CityofEugene.LaneCounty.1986.ÒRiverRoad-SantaClaraUrbanFacilitiesPlan:A RefinementoftheEugene-SpringfieldMetropolitanGeneralPlanÓ CityofEugene.1984.ÒProposedAnnexationtotheCityofEugene:PayasyougoÓ CityofEugene.1978-79.ÒRiverRoadSantaClaraParksandRecreationMasterPlanÓ PreparedbyVistaVolunteers DavidReed&Associates.2005.ÒAGuidetoUrbanServicesinRiverRoadandSanta ClaraÓ DavidReed&Associates.2005.ÒRiverRoad/SantaClaraTransitionProject.Ó Informationbrochure. ECONorthwest.2004.ÒFiscalAnalysisofUrbanServicesinRiverRoadandSanta Clara.ÓPreparedfortheCityofEugene ECONorthwest.2004.ÒSummaryofUrbanDevelopmentEventsinRiverRoad/Santa Clara,1920through2004Ó LaneCouncilofGovernments.2000.ÒRiverRoadÐSantaClaraBackgroundReportÓ LaneCounty.1979.ÒAnAnalysisofPublicOpiniononSewersandAnnexationinthe RiverRoad-SantaClaraAreaofLaneCountyÓ .April2,2006.ÒKeepingtheRiverRoadStoryAlive.ÓMarkBaker TheRegister-Guard UniversityofOregon.2003.ÒACommunityParkforSantaClara.ÓNeighborhoodsLab, CenterforHousingInnovation,ECONorthwest 32 RIVERROAD/SANTACLARA TRANSITIONPROJECT References CityofEugene.2005.ÒSmallLotResidentialDevelopmentinEugene,Oregon:Astudy Local ofdensityandsitedesign.ÓPlanningandDevelopment References CityofEugene.2005.ÒNeighborhoodInitiativePriorityIssueActionPlanÓ CityofEugene.2004.ÒParks,Recreation,andOpenSpaceComprehensivePlan.Ó ParksandOpenSpaceDivision CityofEugene.CityofSpringfield,LaneCounty.1987.ÒEugene-Springfield MetropolitanAreaGeneralPlanÓ LaneCountyBoundaryCommission.2000.ÒSummaryofExistingAnnexation MethodsÓ AmericanPlanningAssociation.2006.ÒStudyShowsPoorPlanningHarmsHealthin Other SeveralWays.ÓAPAJournal References CityofWestLinn,Oregon.2005.ÒVisionStatementandActionPlanfortheBolton NeighborhoodofWestLinnÓ CynthiaGirling,KennethHelphand.1994.ÒYard-Street-Park:Thedesignofsuburban openspace.ÓJohnWiley&Sons InternationalAssociationofPublicParticipation.ÒPublicParticipationSpectrum.ÓWeb site:www.iap2.org/ TheOspreyGroup.2006.ÒConflictAssessment:TheFlorence-EugeneHighway Project(WestEugeneParkway).ÓPreparedfortheCityofEugene January29,2006.ÒOregonteetersbetweencrampedandcozy:land Oregonian. squeezeÐGrowthmakesitharderforresidentsandbuilderstostrikeahappy balance.ÓLauraOppenheimer March28,2006.ÒFriendlymixed-useprojectstudied:Thebuilder TheRegister-Guard. andlandownerenvisionaÒgreenÓblendofshopsandhousing.RandiBjornstad May9,2005.ÒMixingusesahardsell:Sprawlstilltheruleinthe TheRegister-Guard. regionasÔnewurbanismÕstrugglestocatchon.ÓEdwardRusso May9,2005.ÒForEugenevisionaries,makingothersseefuture TheRegister-Guard. isnÕteasy:ThetwotractsthatfinallymightgiverisetoEugene-SpringfieldÕsfirst compactmixed-useneighborhoodhaveafewthingsincommon.ÓEdwardRusso .June29,2005.ÒCityplannerstoproposelowerdensity.ÓScott TheRegister-Guard Maben RIVERROAD/SANTACLARA TRANSITIONPROJECT 33 TaskForceMembers RIVERROAD BethGerot Chair,4-JSchoolBoard;Co-ownerWoodruffNurseryandLandscapesinRiverRoad;non-Cityresident RobHandy Chair,RiverRoadCommunityOrganization;Co-chair,NeighborhoodLeadersCouncil;in-Cityresident BeckyRiley ViceChair,RiverRoadCommunityOrganization;Volunteer,FriendsofRasorPark;non-Cityresident JoleneSiemsen Boardmember,RiverRoadCommunityOrganization;non-Cityresident DaveVanSickle Formerboardmember,RR/SCPropertyOwnersAssociation,non-Cityresident;withdrewfromTask ForceinFebruary2006 MaraWile Boardmember,RiverRoadCommunityOrganization;Member,RR/SCUrbanServicesCommittee; Ownerofnon-CitypropertyinRiverRoadandCityresident SANTACLARA JerryFinigan Chair,SantaClaraCommunityOrganization;ViceChair,RiverRoad/SantaClaraVolunteerLibrary Board;Member,RR/SCUrbanServicesCommittee;FormerNorthEugeneHighSchoolteacher;non- Cityresident PatLatimer Formerprincipal,NorthEugeneHighSchool;non-Cityresident KatePerle Boardmember,SantaClaraCommunityOrganization;Member,SantaClaraCitizensforSensibleParks andOpenSpaces;Co-director,FullCircleCommunityFarminSantaClara;non-Cityresident PatricePhilpott Boardmember,SantaClaraCommunityOrganization;BoardMember,RiverRoad/SantaClaraVolunteer Library;Member,SantaClaraCitizensforSensibleParksandOpenSpaces;residentofSantaClara30 yearsÐ17yearsasanon-cityresidentand13yearsasanin-cityresident MaryEllenRiley Registerednurse,ownerHollyResidentialCareCenter(in-Cityproperty),businessinstructorand counselorLaneCommunityCollegeBusinessDevelopmentCenter,volunteercountyfirefighter9years, non-Cityresident;withdrewfromTaskForceinFebruary2006 AnnVaughn Secretary,SantaClaraCommunityOrganization;Co-chair,RR/SCUrbanServicesCommittee;Former NorthEugeneHighSchooladministrator;in-Cityresident Service Providers in River River and Santa Clara AnnexedUnannexed River RoadSanta ClaraRiver Road Santa Clara Lane Rural FPD SC Fire and EMS City of EugeneCity of EugeneCity of Eugene Fire District Paid EugenePaid Eugene Library City of EugeneCity of Eugene Library CardLibrary Card City of EugeneRiver Road Park & Parks/Recreation City of EugeneNone RR Park DistrictRec. District Planning/Develop City of EugeneCity of EugeneCity of EugeneCity of Eugene Police City of EugeneCity of EugeneLane CountyLane County Stormwater City of EugeneCity of EugeneLane CountyLane County City of Eugene City of Eugene City of Eugene City of Eugene Transportation Lane CountyLane CountyLane CountyLane County MWMC and City of MWMC and City of MWMC and City of MWMC and City of Wastewater EugeneEugeneEugeneEugene RR Water District SC Water District Water EWEB EWEB and EWEBand EWEB Source: "Fiscal Analysis of Urban Services in River Road and Santa Clara," prepared by ECONorthwest, October 2004 Service Providers in River River and Santa Clara IssuesandFindingsReportand SummaryofStakeholderInterviews RiverRoadandSantaClara Preparedfor CityofEugene ElementoftheTransitionManagerContract DavidReed&Associates,Inc. July23,2004 Ò ndtomakethetransition work.Ó RIVERROAD/SANTACLARA I TRANSITIONPLAN IssuesandFindingsSummaryReport SummaryofStakeholderInterviews Overview Theoutlinestheissues,findingsand SummaryofStakeholderInterviewsReport conclusionsthathaveemergedfrominterviewswithRiverRoadandSantaClara stakeholders,serviceprovidersandafewelectedofficialsaswellasinformationgathered fromourresearchandreviewofagencyreports,publicdocumentsandothersources. Theseinterviewsandsummaryreportwillprovidethecontextforpreparingascopeof workforatransitionplanaspartofacontractbetweentheCityofEugeneandDavid ReedandAssociates,Inc. Over35stakeholders,serviceproviders,andotherinterestedpartieswereinterviewedin latespringandsummer.Emphasiswasplacedoninterviewingasrepresentativeagroup ofpeopleaspossible,andnotesfromtheseinterviewsarestrictlyconfidential. Purpose ChangesinthedemographicprofileofRiverRoad/SantaClaraareaareprofoundÐinpart afunctionofrapidurbandevelopmentoverthepastdecade,andinpartduetoagreater Strategy diversityofpeoplewhohavemovedintothearea.Thesechangesareadrivingforce Confidentiality behindtheneedforimprovingdeliveryofservices,andunderstandinghowthisshouldbe accomplished.Residentswhoneedservicestodayaremorediversethanthoseserved20 yearsagowhenannexationandservicedeliveryissuesfirstgainedprominentattention. KeythemesassociatedwiththecurrentdemographicsandpatchworkofCityandCounty propertiesunderscoretherationaleforacceleratedtransitionplanning. OverallThemes: ThecontentiousenvironmentintheRR/SCareaisalegacyofpastinteractions betweentheCityandRR/SCresidentsÑparticularlywithrespecttomandatorysewer OverallTheme linehook-upsandactiveannexationinthe1980s. Fertilegroundexistsforinnovationandcreativethinking. Along-termvisionwithshort-termresultsandopportunitiesisneededtoaddressthe complexissuesandchallenges. Quidproquowillbeanessentialcornerstoneforassuringbuy-intoanysolutions. Communitylivabilityishighlyvaluedbyresidentsinthearea. InterviewThemes: Themesfromthisinterviewprocesswereoftensimilartothoseidentifiedinthe River September2002. RoadandSantaClaraUrbanServicesCommitteesFinalReport, Theseincluded: ÒNoonehasmadeany senseofthisandhowto On-goinglackoftrustthatarearesidentsfeeltowardtheCityofEugeneandits bringallofthepieces agendafortheRR/SCareas together.Ó Lackofarealvoiceindecisionswithrespecttoplanning,development/street standards,andpermitting;countyresidentsfeelÒabandonedÓbycountygovernment ResidentsfeeldisenfranchisedbothwithintheCityandintheCounty CityresidentsintheRR/SCareashaveaperceptionthaturbanservicesarenot providedinanequitablefashionwhencomparedtootherneighborhoodsintheCity PreservingthespecialcharacterofRR/SCneighborhoodsisamajorconcern, particularlyinthefaceofrapiddevelopmentinthearea. Inaddition,lackofinformationaboutsuchissuesaswhenpermitsandannexationare requiredforresidentialimprovementsordevelopment,orwhichentityprovidesservicesin thecomplicatedpatchworkofCityandCountyresidences,exacerbatesdistrustand providesopportunitiesforrumorsandexploitationofresidentsÕfears. RIVERROAD/SANTACLARA 1 TRANSITIONPLAN IssuesandFindingsSummaryReport Challenges ThekeychallengesfacingtheRiverRoadandSantaClaraareainclude: ISSUE1:Rapidgrowth,development,andtransitiontoCityofEugeneservicesare changingthecharacterofneighborhoodsandareperceivedasathreatto communitylivability,senseofplace,andcommunity. TheEugeneLandUseCodewasrecentlyamendedtoreflectMetroPlanpolicyfor lowdensityresidentialdevelopmentaturbandensities,andincreaseddensityis reflectedinRR/SC.Infillingistakingplaceatahighrate,manyresidentsare subdividingorsellingtheirlots,andfrequentlynewhousingisinhighcontrastto ÒDonÕtforcecurbsandgutters existinglargelotsandresidentialdevelopmentthathastraditionallybeenmoresemi- andallthoseurbanstreet ruralincharacter. standardsonsmall developments.Ó Residentsaremostconcernedaboutprospectsofurbanstreetstandardsthatwould changethecharacteroftheirtree-linedstreetsthatcurrentlyhavenocurbs,gutters,or sidewalks. Increasedtraffic,pedestriansafety,andthesymbolismofthewideningofhistoric RiverRoadandlossoftreesrepresentmajorconcernsofresidents. Growthandinfillingareoccurringsorapidlythatsomeresidentsbelieveitmaybe ÒIftheCitywillassuremethat toolatefortransitionplanningtomanagegrowthmoreeffectivelyorpreserve mystreetwillnotbewidened neighborhoods. withcurbsandgutters,Iwillbe gladtobeannexed.Ó PotentiallossofidentityoftheRiverRoadParkDistrictandSantaClaraFire ProtectionDistrictthroughurbantransitionrepresentthreatstolossofasenseof community,sincetheselong-standinginstitutionshavecultivatedfamilyand communitysolidarityovermanyyears. Withrapidgrowthanddevelopment,demographicchangeiscreatingawide divergenceofopinionsandconcernsaboutthefutureofthearea. ISSUE2:Asurbanizingcommunities,RiverRoadandSantaClarahaveevolvedinto highlycomplex,disjointedandconfusingmosaicsoffragmentedservicedeliveries providedbymultiplejurisdictionsandagencieswithinapatchyandfrequently disconnectedurbangrowthpattern. Serviceprovidersforresidentsoutsidethecityincludetworuralfireprotection districts,twowaterdistricts(contractedwithEWEB),aparkdistrict,metropolitan wastewaterservice(CityofEugene),andservicesprovidedbythecountythat includestormwatermanagement(insidetheroadROW),roadmaintenance,and publicsafety.ServicesforresidentswithintheCityofEugeneincludepublicsafety, fireandemergencymedical,roadmaintenance,stormwatermanagement, wastewatermanagement,parksandrecreation,planning,building,and neighborhoodsupport.EWEBprovideswaterandelectricservice.BothRiverRoad andSantaClaraarewithinthe4-JSchoolDistrict. Severalintergovernmentalagreementsestablishrolesandresponsibilitiesforservice providersinthetransitionarea.Dissolvingormergingspecialdistrictsissurfacingas anissueastheCityannexespropertiesandthedistrictsexperiencelossoftheirtax base.AnurbantransitionagreementtransferredlanduseresponsibilityfromLane CountytotheCityofEugenein1987. RIVERROAD/SANTACLARA 2 TRANSITIONPLAN IssuesandFindingsSummaryReport In1979,OregonBoundaryCommissionerDianeNechakdescribedthespecialservice districtsinSantaClaraasaÒmessofunparalleledproportionsanywhereelseinthe state.Ó ISSUE3:Governmentdistrustandperceptionsofabandonmenthave disenfranchisedalargenumberofresidentsintheRiverRoadandSantaClaraareas. SomeresidentsharborfeelingsofÒvictimizationÓovermandatorysewer connectionsandperceivedhardshipsresultingfromlargeassessments. ÒThereneedstobesomekindof checksandbalancesforpeopleto Someresidentsarefrustratedbytheirdesiretoliveinaruralsettingwhilebeing trustanyagreementswiththeCity forcedtoconnecttothecitysewerandultimatelytobecomeannexed. atthispoint.Ó SomeresidentsoutsidethecityfeelabandonedbyLaneCountyasEugenehas assumedmoreresponsibilityforplanningandlandusewithintheUrbanGrowth Boundary,andtheCountyhasnarroweditsroletoroadimprovementsand maintenance,andpublicsafety. ManyolderresidentswanttoÒbeleftaloneÓwhilemanynewerresidentshavea desiretoÒfixcurrentconcernsand/orproblems.Ó ÒTheCityjustwantstofigure ISSUE4:TheCityÕscurrentannexationprocessintensifiesthepre-existinghostile outwhentheelectoratewill environmentandinhibitscreativeandcollaborativeproblem-solvingwithin supportannexation,orwhenthe . communitystakeholders CityÕstaxbaseissuchthatbond measureswonÕtgetvoted TheÒEugene-SpringfieldMetroAreaGeneralPlanÓspecifiesÒTheCityofEugene downÑthenitÕllmovetoannex shallprovideurbanservicestotheRiverRoadandSantaClaraneighborhoodsupon thewholearea.Ó annexationÓ(Policy#5,II-D-7).AdditionallytheMetroPlanstatesthatÒ...Eugene willmakeeveryreasonableattempttoprovideforannexationonlyonavoluntary basisandaccordingtopriorindividualpropertyannexationagreementsÓ(Policy#4, II-D-7).FinallytheMetroPlandirectsthecitytoÒ...developmethodsoffinancing improvementsintheRiverRoadandSantaClaraareasthatareresponsivetothe uniquesituationofresidentsandpropertyowners,aswellastheCityofEugeneÓ (Policy#2,II-D-7). ManyresidentsbelievetheCityÕsgoaliswholesaleannexationinanexpedited manner,whichfuelsstrongoppositionandadesireforapublicvoteonannexation. ÒIftheCityhasalockstep Incremental,non-contiguousannexationisperceivednegativelybymanyresidents, approachforhowannexation whoviewtheprocessasintensifyinganirregular,fragmented,andconfusing occurs,anddoesnÕtallowcitizen urbanizationpattern,withdifferinglevelsofservicethatareexpensiveand inefficient. inputonwhatstandardsand servicesareneeded,itÕllbeahuge mess.Ó Manyresidentsbelievecityannexationresultsinhighertaxeswithalowerlevelof servicethanwhattheynowreceive. ISSUE5:Alackofbasicinformationcontributestoanenvironmentof misunderstandinganddistrust(e.g.whathomeimprovementsactuallytrigger annexation;whoprocessespermits;whodeliversservices). Giventheconfusingjurisdictionalenvironment,thereisamajorgapinpublic informationintermsofpropertyownersÕunderstandingofbasicservicefunctions, operations,andprocedures,andwhotheserviceprovidersareandtheir responsibilities. RIVERROAD/SANTACLARA 3 TRANSITIONPLAN IssuesandFindingsSummaryReport Ahighdegreeofincorrectinformationisdisseminatedthroughoutthecommunity, partlybecausetheannexationprocessissocumbersomeanddifficulttounderstand, andpartlybecausemythicalinterpretationsandoccasionalinnuendoisusedtobuild oppositiontochange. TheadoptedlanduseplanforRiverRoadandSantaClaraistheÒUrbanFacility PlanÓpreparedin1987.Whiletheplanincludesalandusediagramwithlanduse policiesandrecommendations,thefocusoftheplanislargelyonpublic infrastructurewithasmallsectiononenvironmentaldesignandverygeneralizedpark planningconsiderations.Whenresidentsspeakoftheneedforaneighborhood refinementplan,itisapparentthattheyhaveinmindamorevisionaryand comprehensivelanduseplanthanthe1987FacilitiesPlan. ISSUE6:ResidentsbothinsideandoutsidetheCityfeelalackofrepresentation Someresidentsarenotsatisfiedwiththerecentcouncilwardredistricting,which resultedinunequalrepresentationforWard5and7inRiverRoadandSantaClara. Thereisspeculationastotherationalebehindtheboundaries. Someresidentsbelievethattheirelectedofficialsareindifferenttotheir ÒWhypaytheCityÕstaxesifthe representationneeds,orthattheyhavelittlevoiceintheirfuturedestiny. servicesarenÕtanybetterthan whatwehavenow?Ó ISSUE7:Residentsbelieveservicesarenotprovidedequitablyorareprovided inconsistently. Somecityresidentsdonotbelievetheyarereceivingservicesforwhichtheyare assessed,whilesomenonresidentseitherdonotwantacityserviceorbelievethey willnotreceiveservicesequivalenttowhattheyareassessed. SomecityresidentsresentlackofmunicipalservicesequaltootherEugene citizens(e.g.library,parks,swimmingpools). Countyresidentsresentlackofadequateruralservices.TheEugenePolice Departmentcontinuallyprovidespublicsafetyservicesforareasoutsidethecity. Opportunities Theseopportunitieshavebeenidentifiedthroughtheinterviewprocess: ISSUE1:AlegacyofcommunityleadershipexistsinRiverRoadandSantaClara, ÒRiverRoadandSantaClara dedicatedtoproblemsolvingandplanningwithaÒcan-doÓspirit. residentsareconcernedand knowledgeableabouttheir In1968,theSantaClaraCitizensCommitteepreparedtheÒSantaClaraLandUse neighborhood.Wewanttobegina Plan.ÓIn1979,theRiverRoadCitizenÕsOrganizationandtheSantaClara collaborativeefforttoprotectthe CitizensOrganizationpreparedtheÒRiverRoadandSantaClaraParkand uniquecharacterofourarea.Ó RecreationMasterPlan.ÓIn1987,citizenadvisorycommitteeandstaffteam developedtheÒRiverRoad-SantaClaraUrbanFacilitiesPlanÓasarefinementof theMetropolitanAreaGeneralPlan. Foreighteenmonths,an18-membercitizenscommitteecollaboratedwithEugene planningstafftopreparethe2002ÒRiverRoadandSantaClaraUrbanServices CommitteesFinalReportandRecommendations.ÓThisreportisabenchmark documentaddressingservicedeliveryissuesandmakesspecificrecommendations includingaTransitionPlan. RIVERROAD/SANTACLARA 4 TRANSITIONPLAN IssuesandFindingsSummaryReport CommunitystakeholdersinRiverRoadandSantaClarahaveexceptional knowledge,creativethinkingabilities,andastrongwillingnesstosolveproblems inthearea. Illustrativeofacitizeninitiativeistherecentannouncementofavolunteerlibrary toopeninSantaClarawithastart-upbudgetof$15,000. ISSUE2:Giventhecomplex,volatileandcumbersomeenvironmentinRiverRoad andSantaClara,thereisauniqueopportunitytoexploreandexaminenew approachestoprovidemoreefficientandeffectiveurbanservicedelivery,andinturn . buildcommunitytrustandconfidence TheMetroPlanstatesthatspecialdistrictswithintheUrbanGrowthBoundary shallbedissolvedascityannexationoccursovertime(Policy#17,II-B-6). The2000ÒRiverRoadÐSantaClaraBackgroundReportÓpreparedbytheLane CouncilofGovernmentsoutlinedsevenÒplausibleoptionsÓforprovidingurban servicedeliverytotheRiverRoad/SantaClaraarea.Someoftheseoptionswould requireamendmentstotheMetroPlangrowthmanagementpolicies. Considerationoftheseandothermunicipalgovernanceoptionsandphasing considerationsisrecognizedasanappropriateandresponsibleapproachto ÒRasorParkwasamodelfor transitionplanning,andinturnwillengendergoodwillandtrustofresidents. howtoaddressneighborhood needsinawaythatincludeslocal ISSUE3:TheRiverRoadandSantaClaraareahasrichhistory,specialscenic, residentsandidentifies natural,andopenspacefeatures,andotherfeaturesthatresidentsvalue. .Ó priorities TheCityofEugeneispreparingagrantproposaltoprepareahistoryofRiver Roadwithinacontextstatementmethodology,possiblyincludingoralhistories providedbylocalresidents. NaturalfeaturesoftheRiverRoad/SantaClaraareaincludewetlands,swales, vegetatedsloughs,magnificentstreettrees,FlatandSpringCreeks,theWillamette Rivercorridor,farmland,andscenicviewsoftheCoburgHills. Residentsvaluethesemi-ruralcharacteroftree-linedstreets,finegardens,and historicstructures. ÒRiverRoad/SantaClara seemstobewhereinnovationis EmeraldParkandrecreationfacilitiesmanagedbytheRiverRoadParkDistrict, mostneededaswehavebeen parksandopenspacemanagedbytheCityofEugenesuchasAwbreyParkand Ôoutofsight-outofmindÕfora RasorPark,thedecommissionedSantaClaraElementarySchool,andthenew longtime.Ó volunteerlibraryaremajorassetshighlyvaluedbyresidents. TheCityofEugenehasacquiredapproximatelyfiveparkpropertiesinRiver RoadandSantaClarathroughthe1998ParkandOpenSpaceBondProgram,and theCityCouncilrecentlyapprovedacquisitionofalargecommunityparkonthe northernedgeofSantaClara. ISSUE4:RiverRoadandSantaClaraprovideoutstandingopportunitiesfor collaboration,partneringandinnovativethinking. Reviewingbackgrounddocumentsthatareovertwentyyearsold,itisapparent thattransportationandtrafficpatternshavelargelyshapedresidentialand commerciallanduseinRiverRoadandSantaClara.Thismayexplaininpartwhy residentsvaluesohighlythecharacterandqualityoftheirneighborhoods. RIVERROAD/SANTACLARA 5 TRANSITIONPLAN IssuesandFindingsSummaryReport Opportunitiesexistfornewandinnovativethinkingtohelppreservethevalues thatareimportanttoresidents,including: Context-sensitivestreetdesign(vs.conventionalurbanstreetstandards),and alternativesassessmentsforupgrades. Otherurbandesignconcepts,e.g.nodaldevelopmentrefinement DecommissionedSantaClaraSchoolprototypeasanentrepreneurialcity project CommunityassetinventoryprojectÐengagingresidentsinaprocessto ÒWeneedtostraightenout identifystrengthsandweakness,opportunitiesandthreatsinRR/SC immediateproblemsand developanewpaththathas AhighdegreeofprofessionalismexistsamongallserviceprovidersÐregardless mainstreamendorsement, ofboundaries.Thisisanoutstandingclimateforcollaborativeapproachesto andmaketransitionwork.Ó servicedeliveryandpartneringpossibilitiesthatmaynothavebeenidentifiedthus far. Changingdemographicsiscreatingapositiveenvironmentforproblemsolving. : ISSUE5TheCityofEugenehasrespondedtorecommendationsofthe2002Urban ServicesCommitteereporttofundanddevelopaRiverRoadandSantaClara TransitionPlan,createacontractpositiontofacilitatetheproject,andprepareafiscal analysisofurbanservices. TherecentlycompletedÒFiscalAnalysisofUrbanServicesinRiverRoadand SantaClaraÓwillprovideacleareconomicpictureofrevenues,costs,andlevels ofserviceinthearea. ATransitionPlanhasbeenfundedandacontractpositioncreatedtofacilitatethe project. AstaffinterdepartmentalteamisprovidingsupportforpreparingaTransition Plan. Effortsareunderwaytodevelopapartnershipamongallserviceprovidersto exploreawidevarietyofoptionsforservicedeliverytransition. Conclusions 1.Moreinformationisneeded ExistingandproposedIGAs,relevantinformationfromtaxingauthorities, serviceproviders,serviceareamaps,backgroundreports,andhistorical documentsmustbeassembledandexamined.Thevolumeofinformationthat stemsfromsuchacomplexandcomplicatedenvironmentishuge,butitmustbe accessedandorganized.Alibraryisessential,perhapssomeportionsavailable tothepublic.Highprioritymustbeplacedonprovidingbetterandmore informationtoRR/SCresidentstohelpthemcopewithacomplex,confusing, andchangingenvironment. 2.Short-termresultsandalong-termplan The1987ÒUrbanFacilityPlanÓisprimarilyaninfrastructureplan,nota neighborhoodplan.Therefinementprocesscouldbeinitiatedwithacommunity assetinventoryasafirstinstallment,andultimatelyacompletedplanshouldbe along-rangegoalintheTransitionPlan . RIVERROAD/SANTACLARA 6 TRANSITIONPLAN IssuesandFindingsSummaryReport Short-termresultsareessentialtogaintrustandconfidenceofresidents,and providetheoptimumenvironmentforpreparingacreative,thoughtful,long-term TransitionPlan.TheTransitionTeamhasidentifiedanumberofpotentialshort- termactionsthatcouldprovide,attheveryleast,symbolic,andinsomecases, substantivechangesthatdemonstratetheCityÕswillingnesstoaddressconcerns ofarearesidents(e.g.implementingcontext-sensitivestreetdesignstandardsin theRR/SCareatohelpretainneighborhoodcharacter). 3.Notamonolithicenvironment AnyplanningeffortinRiverRoadandSantaClaramustacknowledgeandbe sensitivetothedifferentcultures,values,andopinionsofresidents.Atriangulationof outreachmethodswillbeessentialtoengagethecommunityincreativeproblem solving.Publicforums,surveys,workshops,interactivewebsiteaccess,and information/communicationeffortsmustbeutilizedtothefullestpotential. Transparencyandinclusivenessmustbethehallmarkofpublicprocess. 4.Needforastrategic-orientedTransitionPlan TheTransitionPlanmusthaveadualpurpose:(1)Preferredmunicipalgovernance andfinancing,and(2)Communityplanningandoutreach.Theapproachmustbewell crafted,thoughtful,strategic,andflexible.Theremustalwaysbeanelementofquid proquoasmilestonesarereached.Aggressiveannexationandexpeditedannexation couldundermineeffortsandmakethehostileenvironmentmorehostile.Firstwins areessentialtodemonstrateresultsandpositiveoutcomesinordertoaddressmore longrangeandcomplexissuesandproblemsinacreativemanner. 5.Legacyofproblems,lackoftrust,hostileenvironment Thelonghistoryofdisenfranchisement,hostility,andtensionmustbeaddressedwith ahighdegreeofsensitivity,adaptation,willingnesstotakerisk,andpatience.There willbesomefailuresmixedwithsuccess. 6.TestinggroundÐprototypesthatcanbeappliedcity-wide RiverRoadandSantaClaraprovideamagnificentopportunitytoadvance progressiveurbangrowth,development,anddesignconceptsthatcouldbeapplied throughoutthecity.Thelegacyofdisenfranchisementandfragmentationofservices canbereversedbyleveragingandpromotingaclearpurpose,vision,andachievable goals.Thecombinedexpertiseofcommunityleadership,residents,andprofessional staffisexceptionalandwillbethevehicleforavisionofsuccess. NextSteps UponreviewandcommentbytheCityofEugeneandinterestedparties,thisreportwill becomethebasisforpreparingaworkplanthatwilloutlinemajorelementsofaTransition PlanforRiverRoadandSantaClara,includingthepreferredpublicprocess,phasing,time line,milestones,andoutcomes. RIVERROAD/SANTACLARA 7 TRANSITIONPLAN REVISEDPUBLICPARTICIPATIONWORKPLAN RIVERROAD/SANTACLARATRANSITIONPLAN ÒIftrustisevertobeestablished,theCitymustrecognizethatRiverRoadandSantaClaraare notneighborhoodsofEugene,buttwouniquecommunitieswiththeirownhistory,values,and pride.Theseuniquecharacteristicsmustbeadmittedandvaluedinallplanningforthearea. Andthefateoftheareamustnotbeimposedfromoutside,butmustbeconstructedthrougha collaborativeeffort.Dominationwillneverresultincooperation.InvolvethecitizensofSanta ClaraandRiverRoadinEugeneÕsprocessesandtheymayonedayfeelpartofit.Ó JerryFinigan September2002 PublicParticipationGoals Giventhecomplex,cumbersomeenvironmentandlonghistoryofdistrusttowardtheÔCityof EugeneintheRiverRoadandSantaClaracommunities,inclusivenessandtransparencyis requiredfortransitionplanningtohavesuccessfuloutcomes.Toaccomplishthis,thesepublic participationgoalsprovideaworkingframeworkforRR/SCtransitionplanning,withastatement ofcommitmentforeachgoal: 1.TOINFORM:providebalancedandobjectiveinformationtoassistresidentswitha betterunderstandingofexistingservices,programs,policies,andproblems. Commitment:Tokeepresidentsinformedtothehighestdegreepossiblethroughouttheprocess. 2.TOCONSULT:maintainopennessandsolicitfeedbackfromresidents,developingtwo- waycommunicationthroughouttheprocessincludinganalysis,developmentof alternatives,anddecisions. Commitment:Tolistentoandacknowledgeconcernsandaspirations,andprovidefeedbackon howpublicinputinfluencesdecisions. 3.TOINVOLVE:workdirectlywithresidentstoensurethattheirconcernsand aspirationsareconsistentlyunderstoodandconsidered. Commitment:Toworkwithresidentstoensurethattheirconcernsandaspirationsaredirectly reflectedinalternativesthataredeveloped,andprovidefeedbackonhowpublicinputinfluences decisions. 4.TOCOLLABORATEandEMPOWER:developaworkingrelationshipineachaspectof decision-makingincludingearlyidentificationofwhatisimportanttoresidentsÐtheir concerns,interests,andneighborhoodvalues,andexplorecreativewaystoachievemutual goals,developalternativestrategies,andreachagreementonpreferredsolutions. Commitment:Tolooktoresidentsforideasandinnovationinformulatingsolutionsand incorporatetheirrecommendationsintothedecisionstothemaximumextentpossible. 1 PublicParticipationApproach AwidevarietyofpublicparticipationmethodsarerequiredtoeffectivelyengageRiverRoadand SantaClararesidentsintransitionplanningandfulfillgoalsandcommitments.Inthissense,no particularmethodisbetterthananother,andthecombinedoutcomesfromallthevarious techniqueswillproducethedesiredresults. Thisapproachassuresthatthepublicparticipationprocessisnotonlymanageableandfeasible withrespecttospecificpublicinvolvementgoals,butprovidesmultipleopportunitiesfor residentstobecomeengagedaccordingtotheirownpreferences,interests,schedules,and availability. Aspartofourapproach,JulieFischer,formerco-chairoftheRiverRoad/SantaClaraUrban ServicesCommittee,istheCommunityOutreachSpecialistwhoismanagingtheneighborhood andcommunityoutreachprogramfortheTransitionTeam.Julieisatrainedcommunityplanner andformerresidentofRiverRoad. MethodsUsedtoDate Todate,thesearethemethodsusedtoinform,consult,involve,andcollaboratewithRiverRoad andSantaClararesidents: StakeholderInterviewsandRoundtableMeeting Attheinceptionoftheproject,theTransitionTeaminterviewedapproximately40stakeholders inRiverRoadandSantaClara,andpreparedan IssuesandFindingsReport,documentingresults oftheinterviews.Subsequently,theTransitionTeamhostedaRoundtableMeetingwiththese stakeholderstoprovidefeedbackonaproposedworkplanandscheduleforthetransitionproject, includingaproposalforacitizenadvisorycommittee. RR/SCCitizenTaskForce Atwelve-memberadvisorytaskforcehasbeenmeetingmonthlysinceFebruary2005.Thetask forceconsistsofanequalnumberofstakeholderrepresentativesfrombothRiverRoadandSanta Clara,andabalanceofcityandunincorporatedresidents.Currently,thegroupisconsidering optionsandstrategiesthatultimatelymightserveasthebasisforpreparingatransitionplanfor RiverRoadandSantaClara.Allmeetingsareopentothepublic,andopportunitiesareprovided forpubliccommentatthebeginningofeachmeeting. Website Thewebsiteprovidesbackgroundandcurrentinformationonthe transitionplanningprojectincludingdates,schedules,andmeetingnotesoftheRR/SCCitizen TaskForcemeetings. InterestedPartiesList TheTransitionManagementTeammaintainsalistofover100interestedpartiesincluding electedofficials,cityandcountystaff,specialdistrictproviders,communityorganization advisoryboards,andinterestedcitizens.Theseindividualsreceivenotices,agendas,andmeeting notesofRR/SCTaskForcemeetings. 2 DraftNeighborhoodOutreachPlan Asub-committeeoftheCitizenTaskForcehasdraftedaneighborhoodpublicoutreachplan, includingapilotthatwillbeusedasaframeworkforholdingseveraloutreachmeetingsina numberofneighborhoodsintheFallof2005throughoutRiverRoadandSantaClara.The purposeofthesemeetingswillbetoengageresidentsattheneighborhoodlevelinaninformal setting,providinganopportunityforresidentstoidentifyneighborhoodconcerns,interests,and values.Seniororganizations,schoolsandcommunityorganizationswillbeapproachedtohost thesesessions. DraftInformationBrochureandUrbanServicesPamphlet Aninformationalbrochureexplainstheoverallprojectandincludesabriefhistoryof developmentinthearea,projectgoals,alistoftaskforcemembersandcontactinformation.A drafturbanservicespamphlethasbeenpreparedtohelpresidentsachieveabetterunderstanding ofthenumerouspublicagenciesthatprovideurbanservicesinRiverRoadandSantaClara,and whotocontactforspecificquestionsorneeds.Thisisthefirstoverviewofservicesprovidedin RiverRoad/SantaClarabyeightspecialdistrictproviders,theCityofEugene,andLaneCounty Ðallinoneinformationpiece. CommunityOrganizationsandNewsletters TheRiverRoadandSantaClaracommunityorganizationsprovidepublicforumsforaddressing transitionplanningissues,andopportunitiesforkeepingresidentsinformedthroughprogress reports.ATransitionTeammemberattendsmostmeetingstobriefresidentsoncurrentactivities andgatherfeedbackabouttheprocess.Thetransitionteamidentifiedlackoffundingfordirect mailofneighborhoodnewsletterstocountyresidents,whichsubsequentlyresultedinaCityof EugenebudgetallocationtoincreasenewsletterfundingforFYÕ05-06. Library TheTransitionTeamhasassembledanumberofreports,plansandmapsrelatedtoRiverRoad andSantaClara.ThesematerialswillbeavailableatthevolunteerlibraryintheRiverRoad communityonOakleighDriveinSeptember. AdditionalProposedMethods Severalothermethodsareproposedtomeetpublicparticipationgoals.Theseinclude: ResidentOpinionSurvey Toprovideinputfromabroadcross-sectionofresidentsandtoprovideopportunityforthose whomaynotbeabletoattendpublicmeetings,aformalcommunityopinionsurveywillbe administeredinlate2005orearly2006.AstatisticallyvalidsurveyofRiverRoadandSanta Clararesidentswillprovideabroadmeasureofresidentpreferencesonkeyissuesrelatedto municipalgovernanceandservices. School/StudentInvolvement AnumberofRiverRoadandSantaClarateachershaveexpressedinterestinusingRR/SCasan instructionallaboratoryforschoolprojects.TheTransitionTeamwillbeexploringthese possibilitieswithteachersintheFall2005. 3 PanelForums/CommunityMeetings AstheRR/SCTaskForceworkstodraftspecificstrategiesfortransitionplanning,aseriesof panelsareproposedsothatelectedofficialsandserviceproviderswillhaveanopportunityto haveadialoguewiththecommunityonspecifictransitionissues.Anumberofcommunity meetingsarealsoproposedtoprovidepublicforumstoprovideandshareinformationregarding proposedstrategiesforthetransitionplan.Thesepanelsandcommunitymeetingsaretentatively plannedforthelatterpartofthisfiscalyearornextyearaftertheneighborhoodoutreachproject, theresidentopinionsurvey,andotherpublicinvolvementmethodsareimplemented. 4 Public Outreach Report Prepared by Julie Fischer Under contract with David Reed and Associates, Inc. For the City of Eugene June 2000 Summary In the winter of 2006 the Transition Project worked with the RR/SC Task Force to conduct 11 public workshops involving 149 residents, 69 from River Road and 80 from Santa Clara, 47 who are residents of the City and 102 who reside in unincorporated areas inside the Urban Growth Boundary. The goal of the outreach process was to identify core values and priorities of River Road and Santa Clasra residents in relation to their neighborhood. The project “Maintaining the asked residents to answer three questions about their neighborhood: integrity of our 1. What do you like or value? friendly, rural- 2. What would you like to change? like neighbor- 3. What is your most pressing hope or concern for the future? hood” Resident responses emphasized land use, governance, parks and recreation, and transpor- tation issues (Graph 1-2): “Resolution to Results of Neighborhood Conversations the city/county scrambled eggs Residents value friendly neighbors, rural qualities, current density levels, we have now.” and alternative transportation (walk, bus, bike). Residents would like to see changes in development patterns, traffic, and public safety. “That Santa Residents identify these pressing issues for the future: development, density, rural qualities, representation, and annexation. Clara maintain its identity … We The results indicate that there are distinct differences between the two neighborhoods re- need a commu- garding community priorities (Graph 1-2). In the past ten years, Santa Clara has experi- nity center and Santa Clara resi- enced fast-paced development of large-scale residential subdivisions. place that we dents are concerned about traffic and the lack of parks and recreation facilities and can all come to- their two main priorities are annexation issues and the impact of development. gether.” River Road has experienced few large-scale residential subdivisions and more small-scale infill developments. Residents are motivated to protect what they value: current density lev- River Road residents are primarily els, rural qualities, and the River Road Park District. concerned about development and their priorities are density issues, annexation, and “The fear of an- preserving rural qualities. nexation. I wish Annexation as a governance issue surfaced as the second highest priority for residents in we didn’t have both neighborhoods. Unincorporated residents worry about the future, including higher tax the feeling of ad- rates and the viability of service districts such as the River Road Park and Recreation Dis- versarial grind trict. City residents are concerned about the quality of urban services and tax issues. Al- against the city/ though both communities are experiencing a profound shift with the influx of City residents, county.”residents remain positive about their neighbors and community spirit is strong. The outcomes of the public outreach process provide critical information for community lead- ers working on a strategic plan for each neighborhood. Watching their Santa Clara neighbors struggle with the impacts of development, the River Road community is cohesive and clear in terms of overall priorities: land use and governance. Santa Clara is concerned “Representation with land use and governance, but transportation and parks/recreation are also priorities. — the umbrella Deciding where to focus energy will be an important task for community leaders. that encom- passes the ma- Both neighborhoods also have the opportunity to look for connections between priorities, craft solutions that address multiple issues, and work together on common goals. It is es- jority of issues.” sential that the community involve elected officials and service providers in the planning process, as success will depend on strong relationships with the City, County, and districts. River Road/Santa Clara Transition Project—Public Outreach Report 2 Table 1: Response by General Category and Question RRRRRRSCSCSC Category LikeChange Priority LikeChange Priority Land Use 28 19 36 23 10 29 Governance 5 14 27 11 11 32 General* 3 4 18 7 7 9 Parks & Recreation 28 12 7 10 23 11 Transportation 16 27 2 14 28 12 Environment 7 6 4 11 4 2 Community 11 1 2 8 1 3 Commercial Services 2 8 2 8 8 2 Public Safety 1 7 2 4 4 2 Library 0 1 0 0 2 0 Schools 1 1 0 2 1 0 Total 102 100 100 98 99 102 * Not graphed Note: Total percentages vary slightly from 100% due to rounding. River Road/Santa Clara Transition Project—Public Outreach Report 3 River Road/Santa Clara Transition Project—Public Outreach Report 4 Table 2: Most Common Responses by Sub-Category and Question Question #1Question #2Question #3 RR LikeRR ChangeRR Priority 13Density13Development15Density 10River and bike path10Traffic13Rural Qualities 9Rural qualities7Annexation issues13Annexation issues 9River Road Park Dist.7Public safety11Representation 9Friendly/neighbors6Street design9Development 6Open space6Recreation activities4Recreation activities 5Residential character5Shopping4Property maintenance 5Walk/bike/bus5Representation 4Street Design5Speeding 4Property maintenance 70Total % Response67Total % Response68Total % Response SC LikeSC ChangeSC Priority 13Rural/urban qualities11Traffic17Development 8Friendly/neighbors9Parks - general16Annexation issues 8Walk/bike/bus8Community center YMCA8Representation 8Shopping7Walk/bus/bike6Traffic 6Density6Development5Services-urban 5Taxes6Shopping5Density 4Public Safety5Annexation issues5Taxes 3Open Space4Public Safety5Rural Qualities 3Annexation-general4Services - urban5Community center/YMCA 3Recreation activities3Density 3Property maintenance3River and bike path 3Quiet3Street lights 69Total % Response69Total % Response71Total % Response The River Road and Santa Clara neighborhoods have a long and contentious relationship Project with the City of Eugene. In recent years, the area has experienced both rapid growth and Background incremental, patchwork annexation to the City of Eugene. Concerns about urban services prompted the City to appoint the River Road and Santa Clara Urban Services Committee in 2000. Composed of 16 area residents, the Committee issued a final report in 2000. In 2004 the City of Eugene funded the Transition Project, which included a Task Force of area resi- dents, a team of four consultants, and the City of Eugene. Past efforts by the City of Eugene to evaluate public opinion focused on annexation surveys in 1979 and 1990. A critical aspect of the Task Force work was to conduct an open public outreach process with area residents – something that had not yet occurred in the River Road and Santa Clara communities. A goal of the Task Force was to use the results of the public outreach process to make recommendations to elected officials. In 2006 the Task Force voted to transfer funding for the Transition Project from the consultant team to the community organizations. This report provides the community organizations with the critical information necessary to continue the work of the Task Force and make recommendations to elected officials on the future of River Road and Santa Clara. River Road/Santa Clara Transition Project—Public Outreach Report 5 Workshop results were sorted into several categories: Workshop Outcomes General CategorySub-Categories Land UseDevelopment, density, rural qualities, rural/urban interface, residential character GovernanceRepresentation; annexation-general, no annexation to city, yes annexation to city; taxes, urban service issues “There are dis- GeneralComments too general to categorize, comments that listed tinct neighbor- numerous categories hoods...with dif- Parks and Recreation activities, community center/YMCA, River Road ferent character- RecreationPark District, open space, river and bike path, parks-general istics and needs.” TransportationTraffic, walk/bus/bike, street lights, street design, speeding, road maintenance, connectivity EnvironmentProperty maintenance, natural areas, quiet, trees pollution Commercial ServicesShopping, restaurant “More neighbor- CommunityCommunity/identity, diversity, friendly neighbors hood parks...bike Public SafetyNo sub-categories path along river, LibraryNo sub-categories accessible green space along SchoolsNo sub-categories river.” GeneralGeneral comments, comments with multiple issues Note that in the public outreach sessions, the term “neighborhood” referenced the entire River Road community or the Santa Clara community. For more details on the categories, see page 12: Outcomes by Categories. “Quiet– a country feel in the city. Two Distinct Neighborhoods The sense of his- The phrase “Annexation issues in River Road and Santa Clara” is commonly used by elected tory with existing officials and service providers when referencing the two neighborhoods. Despite the shared annexation issue, the workshop outcomes clearly indicate that River Road and Santa Clara old structures, are two separate communities, each with its own priorities. trees, homes.” Development patterns contribute to the differences – beginning in the 1970’s with the division of the two communities by Beltline highway, and later by the scale and scope of residential subdivisions. In the past fifteen years, Santa Clara has experienced fast-paced development of large-scale residential subdivisions while River Road has experienced few large-scale residential subdivisions and more small-scale infill developments. Santa Clara is adjusting to “My most press- a dramatic increase in population and commercial services, while River Road is experiencing ing concern is a more gradual increase in households. In the future, both communities will continue to ex- that we would be perience widespread infill development. annexed and pay The pace and impact of large residential developments have residents in Santa Clara won- triple property dering how much more development will occur in the future and how government will provide taxes and not for urban services. Residents in the neighborhood are particularly concerned about traffic have anything and the lack of parks and recreation facilities. more to show for it.” River Road residents are asking questions about the future impact of wide-spread infill by a variety of small-scale developers. What does build-out look like, and how will infrastructure change to meet increased demand? The large-scale residential developments in Santa Clara result in an entire subdivision with a similar look and feel, but in River Road and parts River Road/Santa Clara Transition Project—Public Outreach Report 6 of Santa Clara, infill is occurring in neighborhoods with an existing population of homeown- ers who value current density levels and rural qualities. “An ‘organized’ Aside from development patterns, a few other distinctions between the two neighborhoods approach to de- identified by the outreach results include: velopment that River Road’s recreation facilities, bike paths, and access to the Willamette River. limits the Big Santa Clara’s access to farms and rural areas – described in the outcome results as the “rural/urban interface”. City feel.” Question #1: What Residents Like about their Neighborhood Both River Road and Santa Clara listed friendly neighbors, density, and rural qualities. River Road also valued the bike path/river and River Road Park District. Santa Clara val- “I would really ued shopping, the rural/urban interface, and alternative transport (walk/bus/bike). (Graph 3, Table 2) like to see a stronger devel- Question #2: What Residents want to Change about their Neighborhood opment in activi- In Santa Clara, a community center/park was the most commonly mentioned desire for ties for the change and in River Road, development rated highly. Traffic was a frequent response by youth.” residents in both communities – although it did not surface as a “most pressing concern or hope”. Public safety was a frequently mentioned by River Road residents. (Graph 4, Ta- ble 2) Question #3: Residents’ Most Pressing Hope or Concern “Unity of voice Development, density, rural qualities, representation, and opposition to annexation sur- for Santa Clara faced in the top priorities for both River Road and Santa Clara. While River Road focused on density and rural qualities, Santa Clara focused on development. Both neighborhoods to promote, expressed concerns about annexation and tax rates. * (Graph 5, Table 2) Currently, about pride, commu- 30% of the households in River Road and 40% of the households in Santa Clara are in the nity, and unified City. Property tax rates for City residents are about $8.8/$1000. Unincorporated residents access to city in River Road pay $5.50/$1000, and unincorporated residents in Santa Clara pay between services…” $1-$2/$1000, depending on their fire district. Ethnic and Minority Issues: Public safety and pedestrian issues emerged as the primary concern for individuals living in low-income apartments. Theft is prevalent at some low- income apartment complexes, and police response to minor infractions is limited. Low- “The spacious- income children walking to school from apartments located on the North side of River Road ness, intermixing are challenged by unsafe crossings, traffic, and speeding. Access to a library is also a ma- jor concern for Latinos living in the unincorporated area. They often do not own books in of residences English, do not have the time or discretionary income to join the Eugene Public Library, with businesses and are unfamiliar with the volunteer library. Out of the nine families interviewed, not one with small farms; family knew about the volunteer library. love the gar- dens.” Schools were the public service most highly valued by the Latino population – families were extremely satisfied with River Road Elementary and North Eugene High School. The project did not interview disabled individuals, but it would be interesting to obtain their per- spective on the neighborhoods, especially in relation to transportation issues. River Road/Santa Clara Transition Project—Public Outreach Report 7 Reflections on Because of the difficult history between the residents and City of Eugene, the process of conducting neighborhood outreach in River Road and Santa Clara was daunting at the out- the Process set. Surprisingly, workshop facilitation was rewarding, interesting, and generally a positive experience. Residents appreciated the opportunity to ask questions, they were thankful for receiving basic information about services, and they enthusiastically discussed what they liked and did not like about their neighborhood. The basic outreach methodology used in this project could continue to be used in River Road and Santa Clara, or in other neighborhoods in the Eugene area. Residents participated in the workshops because they were interested in their community and wanted a stake in the outcome of a neighborhood planning process. However, they were concerned that their input would not have an impact. Many times in the workshops, residents asked, “What will really come from these sessions?” It is critical that the transfer of the Transition Project from the consultant group to the community organizations also result in the transfer of responsibility to make recommendations to elected officials. With the results of the public outreach, community leaders have essential information Potential needed to prioritize the Transition and Heritage Framework and create a strategic plan for Next Steps each neighborhood. The communities must remember to make a special effort to listen to minority concerns – for instance, many low-income families value police patrols, high density housing and affordable childcare provided by the River Road Park District – none of which rated as a top priority for most workshop participants. Community leaders would also benefit from working closely with elected officials and service providers to identify common goals. River Road has the advantage of a strong neighborhood network, excellent commu- nity facilities, and outstanding connections to the river, bike path, and downtown Eugene. Residents are motivated by what they have to lose, such as the rural neighborhood feel and the viability of the Park District. These factors will help leaders move forward on what is already clear in terms of community priorities: land use and governance. A next step could be to evaluate the different neighborhoods within River Road in terms of values such as density and rural qualities. Balancing the need for affordable housing with a desire for a rural feel is difficult but possible. A useful final plan for River Road would be site-specific, have the support of all facets of the community, and meet local and regional planning goals. Santa Clara benefits from capacity, size, and location; it is a larger, more self- sufficient community with easy access to shopping, farms, and – potentially – the Wil- lamette River Greenway. The challenge for Santa Clara is bring together leaders from both City subdivisions and unincorporated areas to manage the growing pains of development and create a vision for the future. Community leaders would benefit from focusing on issues that are a priority for both City and unincorporated residents, such as the need for a recrea- tion center and community park, development issues, alternative transportation, and a better connection to the river. As with River Road, a site-specific plan would provide clarity for the diverse neighborhoods within Santa Clara. Because it is challenging to organize a commu- nity as large as Santa Clara and motivate residents to work toward new opportunities, lead- ers must focus clearly on defined goals to achieve success. The community organizations will need to carefully consider the structure and proc- ess for future planning projects. The community organization board could function in the same capacity as a non-profit advisory board, providing vision and guidance for projects managed by committed and experienced volunteers or paid staff. It will be critical for each entity to respect the role of the other: the board as a guide and the project manager as an administrator. The connection with City staff also needs definition – as a funder, they would probably review and approve project proposals, evaluate project updates and final reports, and base future funding on the success of past projects. The City neighborhood grants pro- gram is an example of a successful model of collaboration. River Road/Santa Clara Transition Project—Public Outreach Report 8 In terms of negotiations with the City regarding annexation and special district issues , all parties would benefit from an open process facilitated by a neutral third party skilled in mediation. A successful negotiation will depend on clarity around bottom-line issues for all participants. Although future tasks will require focused time and energy, it is an opportunity for neighbor- hood leaders to draw on the strong core of community identity in both River Road and Santa Clara. Connections between City and unincorporated residents are healthy and continue to grow with the outreach efforts of the two community organizations. The next steps will re- quire a broader base of support, both within the community organizations and between the organizations, the community, elected officials, and service providers. River Road/Santa Clara Transition Project—Public Outreach Report 9 Table 3: Responses by General Category, Sub-Category, and Question RRRRRRSCSC Description LikeChange Priority SC Like Change Priority Development 0 13 9 1 6 17 Density 13 3 15 6 3 5 Rural qualities 9 2 13 5 0 5 Rural/urban interface 0 0 0 8 0 3 Residential character 5 1 0 2 0 0 Land Use Total 28 19 36 23 10 29 Representation 0 5 11 0 0 8 No annexation to City 2 5 9 1 2 8 Taxes 3 1 2 5 2 5 Services - urban 0 2 2 3 4 5 Annexation - general 0 1 2 0 1 5 Yes annexation to City 0 1 2 0 2 3 Governance Total 5 14 27 11 11 32 Comments w/ multiple issues 2 2 18 4 4 8 General comments 1 1 0 3 3 2 General Total 3 4 18 7 7 9 Recreation activities 1 6 4 3 1 3 Community center/YMCA 0 0 0 0 8 5 River Road Park District 9 2 2 1 1 0 Open space 6 2 2 3 0 0 River and bike path 10 2 0 1 3 2 Parks - general 1 1 0 1 9 2 Park & Rec Total 28 12 7 10 23 11 Traffic 3 10 0 1 11 6 Walk/bike/bus 5 3 0 8 7 3 Street lights 0 0 0 0 3 3 Street design 4 6 2 1 2 0 Speeding 0 5 0 0 2 0 Road maintenance 0 2 0 1 2 0 Connectivity 3 1 0 2 0 0 Transportation Total 16 27 2 14 28 12 Property maintenance 1 4 4 3 1 0 Natural areas 1 0 0 2 1 2 Quiet 3 1 0 3 0 0 Trees 3 0 0 2 0 0 Pollution 0 2 0 0 2 0 Environment Total 7 6 4 11 4 2 Shopping 2 5 2 8 6 2 Restaurant 0 3 0 0 2 0 Commercial Total 2 8 2 8 8 2 Community/identity 0 1 0 0 1 3 Diversity 2 0 2 0 0 0 Note: To allow for Friendly/neighbors 9 0 0 8 0 0 a comparison be- Community Total 11 1 2 8 1 3 tween River Road responses and Public Safety 1 7 2 4 4 2 Santa Clara re- Library 0 1 0 0 2 0 sponses, numbers Schools 1 1 0 2 1 0 are percentages of a total. 100 100 100 100 100 100 River Road/Santa Clara Transition Project—Public Outreach Report 10 Workshop Structure Appendix A: Five members of the RR/SC Task Force agreed to meet regularly as a subcommittee to de- Project velop a method for providing outreach workshops to the neighborhood. The Subcommittee Methodology regularly shared information with the Task Force and asked for feedback on project design. The basic goals of the workshops were to: Create a positive and personal connection between government, neighborhood leaders, and residents. Focus on issues important to the community and welcome discussion on a wide variety of topics. Identify characteristics of neighborhoods that residents’ value. Answer questions about annexation, development, and transition issues. Disseminate information about neighborhood projects, services, and providers. The Subcommittee decided that a series of smaller workshops –“Neighborhood Conversa- tions” - would provide an environment conducive to listening and gathering meaningful feed- back from residents. How could the project connect with residents who are not already in- volved in local issues? The subcommittee asked active residents to serve as hosts, and to invite their neighbors or friends to the gatherings. Two pilots were initially conducted to test format and logistics – one hosted by a Task Force member and the other hosted by the River Road Community Organization. Resident hosts invited an average of 25 friends or neighbors to the workshops, resulting in average attendance of about 8 residents. However, the 1/21/06 workshop host invited 70 members of a neighborhood watch organization, and about 14 residents attended the event. Workshops were held in the early evening and lasted 1.5-2 hours. The series of 11 meetings ran from October 2005 to March of 2006. While the small, neighborly workshops provided high quality feedback, the subcommittee felt that it was critical to invite all residents in River Road and Santa Clara to a workshop. As a result, the River Road Community Organization and Santa Clara Community Organization each hosted a larger Neighborhood Conversation, inviting all residents through a mass mail- ing of their neighborhood newsletter. These meetings averaged 30 participants. Informational Materials A critical aspect of the outreach process was to provide residents with accurate information about how urban services are delivered to the neighborhoods. The Transition Project pre- pared a ten-page guidebook describing key urban services in River Road and Santa Clara, as well as a brochure explaining the goals of the project. In addition, the project worked with City staff to create a series of neighborhood maps with information about service districts, electoral districts, zoning and land use. Finally, the Subcommittee drafted an informal “dialogue between two residents” that Task Force members performed at the outset of the larger public outreach sessions. Workshop Content Active listening to resident ideas and concerns was the key goal of the workshops. The Sub- committee worked to develop three core questions that all workshop participants would ad- dress. Following is a sample agenda detailing the three core questions: Host: Shelley Hoffman Date: February 26, 2006, 7-9 p.m., located at her house Present: 9 River Road residents, 1 facilitator AGENDA I. Introduction: project background, questions 7:10 pm II. Creating Focus for the Neighborhood and a Vision for the Future 7:30 River Road/Santa Clara Transition Project—Public Outreach Report 11 List three things that you like about your neighborhood QUESTION #1:. Think about things that you VALUE …. What do you like about how your neighborhood looks or functions? What places are important to you? What activities do you really enjoy? List three things that you would like to CHANGE about your QUESTION #2: neighborhood. What do you wish were different? Think of things that would improve your quality of life. Discuss results of Question #1 and #2 III. Wrap-up 8:30 What is your single, most pressing concern or hope for the future QUESTION #3: of your neighborhood? Information on River Road and Santa Clara: Urban Services Guide booklet The information conveyed at the beginning of the workshop centered on a list of seven “Challenges and Opportunities for River Road and Santa Clara” (see page 8). The facilitator also briefly listed the variety of urban services in the area: fire, library, recreation, parks, planning, police, transportation, stormwater, and water. Many of the questions asked by residents at the beginning of the workshop addressed annexation and development, and as a result, those issues received added emphasis. Recording Outcomes Residents completed a short handout which included the three core questions and an evaluation of the workshop. Answers were compiled in a spreadsheet and analyzed. The workshop results are also posted on the project website. The outcomes of the pilot work- shops varied slightly from the others because the subcommittee was testing final wording of the handout questions. (In the 10/25/06 session, participants did not formally answer the final question: “What is your most pressing concern or hope for the future?” In the 11/21/06 session, the wording of the last question was “Aside from your own answers to the ques- tions, list one idea suggested by others that you think is very important to the future of the neighborhood.”) Creating Balance and Addressing Diversity Do the workshop results represent the variety of social and economic interests in the neighborhoods? While the project did not provide a statistically representative sample of the community, it did represent a fair amount of diversity. Seniors, parents, homeowners, high school students and professionals were well represented in the workshops, as well as a re- spectable balance of City and unincorporated residents. Thirty-three percent of the dwelling units in River Road and Santa Clara are inside the City, and 31% of the workshop partici- pants were City residents. Low-income and minority residents were much more difficult to involve. A workshop for low- income Latino parents was poorly attended, but follow-up conversations with Latino parents offered more insights. The student session included several Latino students and one Afri- can-American. The outreach project would have been more complete by hosting workshops with more low-income parents and disabled residents. River Road/Santa Clara Transition Project—Public Outreach Report 12 DateHostParticipants:Participants: Notes RR/SCCity/ Unincorp 10/25Task Force 4 RR/10 SC5/9Pilot session member 11/21RCCO24 RR1/23Pilot session 1/12RR resident14 RR1/13West RR, Cherry Lane, Park Avenue North 1/20North9 RR/12 SCEst. 5/16High School students Eugene H.S. 2/2SCCO35 SC17/18Wide variety of participants 2/8RR resident6 RR0/6Mid RR: Horn Lane area, par- ents 2/9SC resident9 SC8/1NW SC, Dorchester Ln., retired 2/26RR resident9 RR0/9Lower RR: Park Avenue 3/2SC resident7 SC1/6East and North SC: Scenic Dr., Springwood Dr. 3/8Latino rep.3 RR2/1Latino families 3/14SC resident7 SC7/0Mid SC: Winery Lane TOT14969 RR/80 SC47/102 Methodology for Analyzing Outcomes Although analysis of open-ended questions is a more involved process, it can more accu- rately reflect true concerns than a highly structured survey. The results of the core questions were entered into a spreadsheet and sorted by general categories that emerged during the analysis. Categories with a wide variety of responses were then broken down into more spe- cific sub-categories. Because River Road and Santa Clara had slightly different numbers of workshop participants, comparisons between the two neighborhoods are best accomplished by working with percentages (Table 3). Workshop evaluation outcomes were very positive. The final evaluation asked participants to rate the workshop on a scale of 0 (poor) to 5 (excellent) according to the following criteria: overall, usefulness for understanding issues, usefulness for gathering input, environment for productive discussion, facilitators knowledge, and whether the workshop met expectations. The average workshop rating was 4.4. Outcomes by Category Listed below in italics are the general categories resulting from the analysis, followed by the sub-categories and the key words describing the sub-category. Land Use: Development: Developers, new houses, growth, planning issues such as infill, flag lots/ panhandle lots, subdivision, standards, code, and zoning. Density: low density, large lot size, large yards, room between houses. Rural qualities: Country feel, neighborly, large lots, history, quiet, agriculture, privacy, trees, roads without sidewalks. Answers in this category either listed “rural”, “country” or more than one of the above descriptors. Rural/urban interface: semi-rural, sub-urban, close to farms, edge of city, urban growth boundary. River Road/Santa Clara Transition Project—Public Outreach Report 13 Residential character: Older homes, vintage houses, architecture, single family homes, ma- ture homes. Governance: Representation: voice, voting, decision-making, elected officials No annexation to city: no annexation, no city involvement/rules, no city expansion Taxes: low taxes Services – urban: Fire service, water service, sanitation Annexation – general: Annexation (comments did not specify position) Yes Annexation to City: incentives to join city, wish all lived in city General: Comments with multiple issues: specific comments that list several different issues, such as “I like police service, schools, and shopping”. General comments: Very broad comments such as – I like it the way it is, no change neces- sary, everything, stable neighborhood. This category was not included in the graphs because responses were reflected accurately in other categories. Parks, Open Space, and Recreation: Recreation activities: Basketball, skating, playing in yard, tennis, bowling, etc. Community Center/YMCA: recreation center, gathering place for activities, pool. River Road Park District: River Road Park, Emerald Park, River Road pool. Open Space: fields, empty space, pond area, green space. River and bike path: Willamette River, bike path, greenway. Parks-general: neighborhood parks, sports complex, park land. Transportation: Traffic: Traffic problems, flow, and solutions Bicycles: bikes, cycling Streetlights: street lighting Street design: sidewalk/curb/gutter references, stormwater issues, underground utilities, comments against road development due to energy crisis Pedestrians: walking Speeding: speed limit, traffic calming, speed bumps, slower traffic Bus: LTD, public transportation Road maintenance: street care, repaving, signage references. Connectivity: access to other areas, close to stores, airport, mall, etc. Environment: Property maintenance: clean, well kept, looks nice, upkeep, litter, yard care Natural areas: natural features, waterways, wildlife Quiet: quiet, relaxing, private Trees: Greenery, big/mature trees, nice trees Pollution: Dust problem, bad smells, air quality, railroad noise Commercial Services: Shopping: Food, grocery, gas, commerce, stores, Santa Clara Square, medical services, small businesses, River Road downtown, small stores, local businesses. Restaurant: Places to eat Community: Community/identity: build community, maintain identity Diversity: mix of ages and families, people: all walks of life, diverse population Friendly/neighbors: Friendliness, like my neighbors, neighborhood, small town River Road/Santa Clara Transition Project—Public Outreach Report 14 Public Safety: police coverage, crime, feel safe, vandalism, drugs, sheriff, safety response Library: Library card, branch library Schools: Like my school, neglect of neighborhood schools, proximity to school Workshop Introduction Details Basic information provided to residents during the workshop introduction Challenges and opportunities for River Road and Santa Clara: 1. Some residents in River Road and Santa Clara live in the City and others are in unincor- porated areas. 2. All new development in River Road and Santa Clara is annexed to the City. 3. The neighborhoods have a variety of providers for urban services: Sometimes services are split between providers. For example, City police respond to calls on City properties, and the Lane County Sheriff responds to calls in unincorporated areas. Sometimes agencies coordinate to provide services. For example, the City provides road mainte- nance in most of River Road, and the County maintains most of Santa Clara. 4. The future of services is uncertain: incremental annexation is constantly changing how services are provided. 5. The area is split by two City Council wards and two County Commissioner wards. The unincorporated residents lack representation with the City, which makes planning deci- sions for the area. In addition, residents might have a stronger voice on City Council if the entire area were annexed. 6. Urbanization has created tensions between the City of Eugene and residents. In the 1990’s many residents were upset with the way the City required them to connect to the sewer system. Trust between the City and some residents is still a major issue. 7. Residents, elected officials, and service providers are all searching for solutions to the above challenges. Solutions could include: Creating a clear vision for each neighborhood and a stronger voice for residents with elected officials and service providers. Working to build trust between the City and residents by acknowledging the past and planning for the future. Encouraging residents to participate in community issues. Educating residents about the current situation. River Road/Santa Clara Transition Project—Public Outreach Report 15 Appendix B: Additional Graphs River Road/Santa Clara Transition Project—Public Outreach Report 16 River Road/Santa Clara Transition Project—Public Outreach Report 17 RIVERROAD&SANTACLARA COMMUNITYTRANSITION&HERITAGE WHITEPAPER Preparedby: JamesH.Rapp 3113NESkidmoreStreet Portland,Oregon97211 undercontractwith DavidReed&Associates,Inc. for TheCityofEugene,Oregon May2006 RiverRoad/SantaClaraCommunityTransitionProject TransitionandHeritageWhitePaper TABLEOFCONTENTS GoalsandKeyIssues1 AssumptionsandLimitations3 StructureandProcess4 Benchmarks6 DevelopingaTransitionandHeritageStrategy7 FireProtectionandEMS9 LibraryServices14 CommunityGovernance17 Parks,OpenSpaceandNaturalAreas19 LandUsePlanning24 RecreationServices28 Streets35 SurfaceWaterManagement39 PublicSafety,SolidWasteCollection,41 WaterSupply,SanitarySewer Goals ThisRiverRoad/SantaClaraTransitionandHeritageStrategyWhitePaperisintendedtocontributeto effectivecommunitytransitionplan(s)fortheterritorywithintheEugene/SpringfieldUrbanGrowth Boundary(UGB)intheRiverRoadandSantaClaracommunities.Thesuggestionshereinencompassan arrayofpotentialservicedeliveryopportunitiesandoptionsthattheCityofEugene,LaneCounty,local specialservicedistrictsandotherserviceproviders,andthecitizensofRiverRoadandSantaClaracould considertoassistinthetransitionoftheseneighborhoodsasfutureurbanizationoccurs.Theoptions identifiedareintendedtobeofequalusefulnesstotheCityandtheCounty,otherserviceproviders,and thetwocommunitiesinfosteringacreativedialogueongrowthimpactsandinreachingmutual agreementoneffectivestrategiestosustaincurrentandhistoriccommunityinstitutionsandheritagein thefaceofthechangesbroughtaboutbyannexationandurbanization. KeyIssues PriorannexationandurbanizationintheRiverRoadandSantaClaraneighborhoodshavebeendrivenby suchfactorsasthedemandforexpandingurbanservicestonewdevelopments,utilityextensions,the developmentofindividualexistinglots,locallandownerpreferences,andtheneedsoflocalgovernments andserviceproviders.Theresultisacheckerboardofgerrymanderedandsometimesisolated incorporatedterritory,oftenassmallasindividual5,000squarefootresidentiallots.Approximately30%of RiverRoadand40%ofSantaClarahasbeenincorporatedintotheCityofEugenethrough2005. FromtheperspectiveoftheCityofEugene,andperhapssomeotherserviceproviders,theforegoing situationmaycontributetomakingserviceprovisiondifficulttomanage,inadditiontoraisingissuesof serviceandtaxequitybetweenin-Cityandunincorporatedresidentsandpropertyowners.Mattersare furthercomplicatedinthattheunincorporatedareasofRiverRoadandSantaClaraarenotsimplyserved byLaneCounty(orevenservedbytheCityunderagreementwiththeCounty).Portionsofthetwo neighborhoodsareservedbytwoindependentfireprotectiondistricts,twowatersupplydistricts,anda parksandrecreationdistrict.TheEugeneWaterandElectricBoardalsohasapartinserviceprovision. Therangeoflandusesacrossthetwocommunitiesarealsoverydiverse,includinglargelotresidential, agriculturallandsandhomes,newersubdivisions,commercialcentersandolderbusinessuses,aging andbrandnewpublicinstitutions,publicparklandsandplaygrounds,riverfloodplainandriparianareas, andevenanadjacentrailroadmaintenanceyard(thislastuseisjustoutsidethecommunityboundary). ExistingstreetsexhibitthesamerangeÐrecentlyimprovedurbanarterialsÒmorphÓintotreedruralroads; andnewerneighborhoodstreetsarecurbedanddevelopedwithsidewalks,butolderstreetsareoften minimallyorpoorlypavedwithconventionaldrainageswalesasthenorm. Basedonpublishedmaterials,mostespeciallythe2002RiverRoad/SantaClaraUrbanService CommitteeReport,discussionswithserviceproviders,andthe2005-06RiverRoad/SantaClara TransitionTaskForce,servicessuchaspoliceprotection,sanitarysewerandwatersupplyappeartobe generallysatisfactory(duetogovernance,conditionoftheinfrastructure,and/orotherfactors).Thereal andperceivedimpactsofannexationandgrowthoncertainotherservices-transportation,library,parks, fireservice,andsurfacewater-appeartobeofgreaterconcernforavarietyofreasons.Someofthese servicesoriginatewiththeCity,somewithLaneCounty,andsomewithspecialservicedistricts. Annexationandurbangrowthoftenbringsnewandmorereliablewaterandsewerservices,pavedroads, improvedpublicsafetyservices,andnewcommunityfacilitiessuchaslibrariesandparks.Nonetheless, urbanizationandannexationcanalsospellchangeintheformofmorenoise,busierstreets,newand unfamiliarneighbors,thelossoftreesandundevelopedopenspaces(albeitsomeoftheseÒopenÓspaces willbeprivatelyheld,andnotnecessarilylandsuitableoravailableforthepublicdomain),thedemiseof longstandingareainstitutions(bothlocalpublicserviceprovidersandprivatebusinesses),andÒforcedÓ connectionstosewerandwaterlinesbasedonpublichealthconcerns.Forthosealreadylivinginareas recentlyorabouttobeannexedandredeveloped,suchchangescanquicklyÒsourÓwhateverpositive benefitsgrowthcanbring.Developmentmayincreasefeelingsofanerosionoflivabilityandcommunity RiverRoad/SantaClaraCommunityTransitionProject1 TransitionandHeritageWhitePaperMay2006 heritagethatperhapsstartedwithpriorannexations.Infact,eveninfrastructureimprovementssuchas urban-levelroadupgradesmaybeperceivedasreducinglivability. InreviewingtheSeptember2002ReportoftheUrbanServicesCommittee,thislatterformofreaction, perhapsengenderedbyperceivedpoorexperienceswithpriorannexationsinthesetwocommunities, andwhilenotubiquitousoruniversallyheld,appearstoholdswaywithmanyresidentsandstakeholders inRiverRoadandSantaClara.Additionally,manyparticipantsintheUrbanServicesCommitteeÕswork, whootherwiseevidencedsomesupportfortheCity,recognizedthatpriorannexationsandinfrastructure improvements(e.g.:therequiredseweringofthetwocommunitiesinthe1980Õs)maynothave necessarilybeenundertakeninthemosteffectiveorsensitivemanner.Balancingthis,mostresidents whoparticipatedinthe2002effortappearedtounderstandthatultimatelyRiverRoadandSantaClara willfullyurbanizeandbecomepartoftheCityofEugenethroughannexation.Thecriticalissuesarehow thisoccursandwithinwhattimeframe. AstheCityofEugene,otherserviceproviders,andthetwocommunitiescontemplatethefuture incorporationanddevelopmentoftheremainingterritorywithinRiverRoadandSantaClaraintotheCity, ancommunitytransitionandheritagestrategythatcanbesupportedby,andthataddressestheparticular needsof,RiverRoadandSantaClaraisanimportantinitiative.Asuiteofstrategiesandactionsthat addresstheconcernsofarearesidents,businessesandlandownerswithrespecttotheirsenseof communityheritage,preservationoflocalinstitutions,lossofcontrolandgovernance,andretentionof someoftheÒlookandfeelÓofthepresentdaycommunity,isappropriate.Suchstrategiesandactionswill helptobetterassurethatwhenandifthesecommunitiesjointheCitythattheydosowiththeleast dislocationanddiscontentpossible.ThisWhitePaperoutlinessucharangeofpossibleoptionsandideas thatmightforthebasisofasetofcommunitytransitionandheritagestrategiesandactions. RiverRoad/SantaClaraCommunityTransitionProject2 TransitionandHeritageWhitePaperMay2006 AssumptionsandLimitations 1..Thefinancialandtaximplicationsofurbanizationandannexation FiscalandLegalImplications totheCityofEugeneisnotdirectlyaddressedbythisWhitePaper.EcoNorthwestInc.previously conductedsuchananalysis,anditisassumedthatsuchimplicationsofurbanizationand annexationhavebeenorwillbeassessedelsewhere.Similarly,ananalysisofthelegaland statutoryoptionsavailabletomunicipalitiesintheStateofOregonwithrespecttourbanization andannexationwasnotconducted,exceptinsofarascommunitytransitionandheritage initiativesandoptionsidentifiedinthisWhitePapertakeintoconsiderationthegenerallimitations ofsuchlegalissues.Infact,statuteswithrespecttoannexationweresignificantlyamendedby theStateofOregonLegislaturewhilethisWhitePaperwasbeingdrafted. 2..ThegoalofthisWhitePaperistoidentify TheÒInevitabilityÓofUrbanizationandAnnexation strategiesandactionsthatcouldfosterandsupportarealsensethaturbanizationandeventual futureannexationdoesnotnecessarilymeananabsolutelossofheritage,controland community.Thisbeingsaid,practicallyallthepotentialactionsoutlinedintheWhitePaperare annexationÒneutralÓÐmanyoptionscouldbepartofstrategiesandactionsthatthetwothe communities(orlocalgovernments)maywanttopursueunderANYcircumstances,andsuch optionsmaybeusefulregardlessofthecurrentorfuturecircumstancesinfluencingthepaceof annexation.Thecommunitiesinquestionwill,nonetheless,eventuallybecomepartoftheCity anditsgovernance,basedonthesimplefactsthatRiverRoadandSantaClaraarewithinthe UGB,andthatconsiderablepartsofbothneighborhoodsarealreadyannexed. 3.ResearchfocusedonOregonexamples,andthe ApplicabilitywithinStateLandUseLaw. recommendedstrategiesandactionsdescribedinthisWhitePaperaregenerallyfeasibleunder OregonlanduselawandthestipulationsofORS199and222,whichgovernannexationoptions inOregon,andOAR191,whichisspecifictotheLaneCountyBoundaryCommission,andother applicableStateregulationsandpolicies.Acomprehensivelegalandstatutorycompliance analysisofeachoptionwas,however,welloutsidethescopeofthisWhitePaper,andany selectedoptionsshouldbeexaminedwiththecaveatthatadditionalresearchandpolicyanalysis mayberequired. 4..Possiblestrategiesandactionsidentifiedin ApplicabilitywithinLocalandRegionalPolicy thisWhitePaperconsideredthepoliciesandauthoritiesoftheCity,andotherimpactedservice providers,andtakeintoaccountapplicableregionalpoliciesandadoptedplansaccordingly.This doesnotmean,however,thatpotentiallyusefulandeffectiveoptionswereomittedsimply becausetheywerecontrarytoanadoptedlocalorregionalpolicy.Differingfromtheabovestated generalstandardforcompliancewithStatestatutes,non-compliancewithadoptedlocalor regionalpolicywasnotaÒdefaultÓcriteriafordroppingapossibletransitionorheritageoption.All thingsbeingotherwiseequal,ifthepolicyorordinancechangesnecessarytomakeanotherwise effectiveactionfeasiblewerewithintheauthorityoflocalorregionalgovernment,suchactions havebeenincluded. 5.ThisWhitePaperdoesnotpurporttoexplaineach ComprehensiveNatureoftheAnalysis. possiblestrategyoractioninitsentirety,ortobeacompleteandauthoritativefeasibilityanalysis foreach.Therearecertainlyotherideasouttherethatmaybejustasusefultothetwo communities.Theoptionsdescribedhereinappeartoholdpromiseforthecommunities,butonly thetestofthepublicprocesswilldecidewhatworksandwhatdoesnÕt.Thatwillbethe responsibilityoftheresidentsofRiverRoadandSantaClara,theCity,County,otherlocalservice providers,andotherimpactedcitizensandstakeholders.TheWhitePaperisanoutlineofideas thatthetwocommunitiescouldpromoteÐorlocalgovernmentsoffer.TheWhitePaperisa startingplaceÐnotafinalÒplanÓoraÒstrategyÓ. RiverRoad/SantaClaraCommunityTransitionProject3 TransitionandHeritageWhitePaperMay2006 StructureandProcess Indevelopingtheoptions/actionsandassociatedadvantagesandchallengespresentedinthisWhite Paper,the2002RiverRoad/SantaClaraUrbanServicesCommitteeReportwastheprimarystarting point,alongwithothercityandregionalplansandpublications,indeterminingwhichserviceswere mostimportanttothetwocommunities. Writtenfactualbackgroundsummariesforselectedserviceswerepresentedtotheimpactedservice provider(s)forreview.Theserviceproviderswerealsoaskedtoprovideinformationupdatingactivities andprogramsthatperhapswerenotinplacewhenthepublishedmaterialsweredeveloped.The consultingtransitionteam(ledbyDavidReedofDavidReedandAssociates,Springfield,Oregon)also listenedcarefullytotheobservationsandconcernsoftheRiverRoad/SantaClaraTransitionTask Force,andatmanyothercommunityforumswhereservicedeliveryquestionswerediscussedand debated.Theseforumsincludeddirecttransitionprojectactivities,andothereventsrelatingto communityissuesthatoccurredduringthecourseoftheproject. Options/actionsweredevelopedbythinkingaboutpotentialsolutionstothecommunityissuesand concernsbasedontheconsultingtransitionteamÕsexpertiseandexperience,byconsideringactivities andprogramsalreadyunderwaybylocalspecialservicedistrictsandgeneralgovernments,by researchingandunderstandingapplicablesolutionsdevelopedinothercommunitiesinOregon,andby listeningcarefullytowhatwasbeingsaidatTransitionTaskForcemeetingsandinothercommunity forumsandevents. Theoutcomethethisapproachiswelloverfiftydifferentoptions/actionsspreadacrosstwelvedifferent services,nearlyallwithassociatedandsummaries,andseveralwith ÒAdvantagesÓÒChallengesÓ sectionsentitledTheintentistointroduceasfullofanÒAto ÒWhatAnotherCommunityHasDoneÓ. ZÓsetofpotentialoptions/actionsaspossible.ThepointofthisWhitePaperwastopresent-butnot selectÐideasthatmightbeusefultothetwocommunitiesandthecommunityserviceproviders.Even ifanoption/actionhadsignificantpracticallimitations,usingorreflectingonanelementofaparticular optionmightÒimproveÓanother.Bypresentingeventhosepotentialoptions/actionswithmajorpractical limitationstoimplementation,thetwocommunities,theTaskForceandlocalserviceprovidersare presentedwithgoodÒsideboardsÓwithinwhichtohoneinonthemostfeasibleandusefuloptions. ServicesaddressedinthisWhitePaperinclude: FireProtectionandEmergencyMedicalServices RecreationServices LibraryServices LandUsePlanning NeighborhoodGovernance Streets Parks,OpenSpaceandNaturalAreas SurfaceWaterManagement(StormWater) PublicSafety(PoliceProtection) WaterSupply SanitarySewer SolidWasteCollectionandRecycling Formostoftheaboveservices,anindividualWhitePaperchapterincludingaseparateevaluationand setsofspecificoptions/actionshasbeenprepared.Eachchapteraddressingasingleserviceincludes optionsclassifiedasÓTransitionÓand/orÒHeritageÓ.Forsomesuchservices,thelistedoptions/actions havebeenfurtherclassifiedasapplyingexclusivelytoRiverRoadorSantaClara,andinsomecases ÒMiscellaneousÓserviceoptionsareidentified.Specificcommunityoptionsaretypicallylistedwhereone RiverRoad/SantaClaraCommunityTransitionProject4 TransitionandHeritageWhitePaperMay2006 ortheotherneighborhoodisservedbyasinglepurposespecialservicedistrict(suchasRiverRoad ParksandRecreationorSantaClaraFire).Watersupply,solidwastecollectionandrecycling,public safety,andsanitarysewerservicesareconsolidatedintoasinglechapter,forreasonsasexplainedinthe introductiontothatchapter(page41). ThetermsÒTransitionÓandÒHeritageÓaregenerallydefinedas(pleasenotethatinsomecasesthechoice ofclassificationbetweenaTransitionorHeritageoptionwillnotalwaysbeabsoluteorclearcut): 1.ÐAnoptionthatwillassistthecommunities,Cityand/oracurrentserviceproviderto Transition effectivelyadjusttoagradualtrendofannexationandurbandevelopment.Suchoptions,while important,dohavefewerorlessdirectbenefitsinpreservingorenhancingtraditionalcommunity governance,appearance,andinstitutions. 2.ÐAnoptionwhichcouldhaveclearanddirectbenefitsinpreservingand/orenhancing Heritage traditionalcommunitygovernance,appearance,andinstitutions. Thereaderisalsocautionedtokeepseveralthingsinmindinreviewingtheseserviceoptions: 1.Thelengthandnumberoflistedforeachoption/actionshould ÒAdvantagesÓandÒChallengesÓ notbeseenasanindicatoroftheviabilityofagivenoption(e.g.:anoptionwithsixlisted ÒchallengesÓandonlytwolistedÒadvantagesÓisnotnecessarilytheonethatshouldberejected). 2.Notalltheoptionslistedforagivenserviceareintendedtobesupportedorimplemented(bythe twocommunities,Cityand/orserviceproviders).Choiceswillhavetobemade.Similarly,the implementationofoptions/actionsforeveryserviceisnotanticipated.Choicesmayperhapshave tobemadetomoveforwardwitharelativelysmallsuiteofoptions/actionsthatbestsupport communitytransitionandheritagepriorities.Thisshouldbedeterminedthroughapublicprocess includingthebroadestrangeofcommunityinterestsandstakeholders. 3.Manypotentialoptions/actions,bothwithinagivenservicecategoryandbetweenservices, overlapandareinter-related.Othersmaytendtocanceleachotheroutorconflict.Community residentsandbusinesses,theCity,andotherserviceprovidersshouldusetheoptionsasstarting pointsindevelopingeffectivetransitionandheritagestrategies.Theremayevenneedtobea differentsetofstrategiesandactionsforeachcommunity. RiverRoad/SantaClaraCommunityTransitionProject5 TransitionandHeritageWhitePaperMay2006 Benchmarks InundertakingresearchforthisWhitePaper,andidentifyingpotentialstrategiesandactionsthatmay workfortheCityofEugene,otherlocalserviceproviders,andthecommunitiesofRiverRoadandSanta Clara,sixÒunifyingÓcategorieswereconsidered.Althoughtheoptions/actionscontainedhereinarelisted byservicetype,theycouldaswellhavebeenlistedbythecategoriesbelow.Thesecategoriescould potentiallybeÒthemesÓaroundwhichoneormoretransitionandheritagestrategiescoalesce. Note:In manyinstancesthesecategorieswilloverlap.Forexample,optionsinvolvinglocalfireprotectionservice couldbediscussedinthecontextofGovernance,Institutions,and/orServices. 1.ÐOptions/actionsthatpreserve,orperhapscreate,processesthatprovide Governance residents,businessowners,andlandownersinRiverRoadandSantaClarawithasenseof communityandofhavinganeffectivevoiceovertheirfuture. 2.ÐOptions/actionsthatpreserveorcreateinstitutions(suchascommunitycenters, Institutions volunteerfirebrigades,etc.)thatsustainorstrengthenthedistinctcommunityidentityofthe urbanizingareas. 3.ÐOptions/actionsthatpreserveorcreateoutletsandprocessesfor Communications communicatingwithinthetwocommunities,notjustforthepurposeofassuringthatresidents knowwhatisgoingoninthecommunity,buttoalsofosterasenseofdistinctidentityaswell. 4.ÐOptions/actionsthatallowurbanizingareastopreservesomeofthephysical Landscape attributesofamoreruralorsuburbancommunity,suchasdifferingstreetstandards,openspace, preservationofagriculturallands,lotandhousingtypes,etc. 5.ÐOption/actionstophaseortimeincorporationwithinthebenchmarkoffeasibilityunder Phasing Oregonstatutes.Thisisnotnecessarilylimitedtophysicalphasing.Forinstance,the option/actionsidentifiedcouldbeasimpleasphasingofaCityfee. 6.ÐOptions/actionsforservicesthataredesignedprimarilytoenhancecurrentprovisions Services intheurbanizingareasinwaysthataddressexistingcommunityneeds,notthoseofthefully developedÒpost-incorporationÓcommunity(butthatstillhaveÒutilityÓforfutureresidentsand businesses). Additionally,inidentifyingandanalyzingthelistedWhitePaperstrategiesandactions,thefourmajor themesidentifiedinthe2002RiverRoad/SantaClaraUrbanServicesCommitteeReportwereusedas ÒbenchmarksÓagainstwhichtherelevanceandpotentialeffectivenessofeachoptionwastested.Thefour themes/benchmarksasdefinedinthe2002Reportare: Trust Voice Equity Collaboration Thesethemes,havingbeendistilledbytheverypeoplethinkingandcaringmostdeeplyabouttheimpact ofurbanizationandannexationonRiverRoadandSantaClara,andbeingbasedonwhatisperceivedas havingbeenunsatisfactoryinthepast,providedauniqueopportunitytofilterresultsthroughthelensof thetwolocalcommunities. AfifthbenchmarkusedinthisWhitePaperwas,asdescribedinthe statutoryandpolicyfeasibility precedingchapter(page3). AssumptionsandLimitations RiverRoad/SantaClaraCommunityTransitionProject6 TransitionandHeritageWhitePaperMay2006 DevelopingaTransitionandHeritageStrategy AsindicatedintheopeningparagraphofthisWhitePaper,theserviceoptions/actionsidentifiedare intendedtobeofequalusefulnesstothetwocommunities,theCity,otherserviceprovidersinfosteringa creativedialogueonurbanizationimpactsandinreachingmutualagreementoneffectivestrategiesto sustaincurrentandhistoriccommunityinstitutionsandheritageinthefaceofthechangesbroughtabout byurbanization.AneffectivemeansofbuildingconsensusanddefiningjustwhatitmeanstoÒsustain currentandhistoriccommunityinstitutionsandheritageÓisthroughthedevelopmentofaTransitionand HeritageStrategy. ThisWhitePaperisintendedtobethestartingpointfromwhichsuchastrategyorstrategies(and associatedsetofimplementingactions)canbeestablished.Accordingly,andinthespiritofusingthis WhitePaperasaÒhandbookÓ,afewsuggestionsforstructuringandworkingthroughaRiverRoad/Santa ClaraTransitionandHeritageStrategyfollow: 1.WhatÕsthedifferencebetweenanoption(aspresentedinthisWhitePaper)andastrategy? Anisafocusedchangeaddressingalimitedactivityoravariationofasingle option service.Theimpactcouldbesignificantfortheservice,butdoesnÕtnecessarilyresultin outcomesaddressinglargercommunityissuesandgoals. Abringstogetherasetofrelatedoptionsintogroupingsofactionstatements strategy thatcanspanseveralservices,andthatwhentakentogethercanadvancelongterm communitygoalsanddesiredoutcomes. 2.Whycreateastrategyatall?Whynotpickasetofoptions/actionsandindependently implementthem? AnyoptioncouldbeselectedandworkedonindependentlyandÒinthemomentÓ,butthe longtermimpactsmightnotbeunderstood(ormayprovetohavebeenmisunderstood). Communitiesaredynamicandcomplexentities,andrarelycanproblems(andeffective solutions)beboileddowntoasingleissueoroption. Theriskisrunthatseparatelyimplementedoptions/actionsmayconflictwitheachother orcanceleachotherout.Astrategycanreducethisrisk. Astrategyarticulatesavision,andseriesofdesiredgoalsandoutcomes,thatwillhelp thecommunitystayfocusedontheÒbigpictureÓandtomeasuresuccess. 3.Whataretheelementsofaneffectivestrategy? Themosteffectivestrategyisbasedonaclearlystatedandagreedtomissionorvision andsetofgoals.AlesseffectivestrategydoesnÕtincludeanagreedtomissionandsetof goals. AneffectivestrategyhasclearstructureandboundariesÐinthiscaseperhapsthe boundariesofRiverRoadandSantaClaracommunitiesand/orbylimitingthestrategyto justacoupleofserviceareas(itmighteventurnoutthatthetwocommunitieswarrant separateorsomewhatoverlappingstrategiesandactions). Thestrategywiththebestchanceofsuccessistheonethatendsupwithaunified ÒthemeÓorÒthemesÓandasetofdesiredoutcomesconsistentwiththestatedvisionand goals.TheTransitionTaskForcemaywishtoconsiderthesixÒunifyingÓcategories definedunderthesectionofthisWhitePaperasastartingpointin Benchmarks developingathemeorthemes. Implementationactionsthatareclearlywithintheauthorityorabilityofthegroupadopting thestrategyaremosteffective.Themorethegrouphastorelyonotherstoimplementa strategyoraction,themoreproblematicthingsbecome.Thiswillbeaparticularand majorchallengeforRiverRoadandSantaClara.TheTransitionTaskForceisanad-hoc RiverRoad/SantaClaraCommunityTransitionProject7 TransitionandHeritageWhitePaperMay2006 advisorycommitteeformedbytheconsultingtransitionteamthatwillendwhenthe projectends(butpresumablywellbeforeanyagreedtostrategiesandactionscaneven begintobeimplemented). Theoptions/actionsincludedinastrategyshouldrelatetoandsupportoneanother. Betteryet,successforÒOptionAÓshouldalsohaveadirectpositiveimpactonÒOptionDÓ andsoforth.Astrategyconsistingofunrelatedactionsislittleornostrategyatall. Allthatbeingsaid,therewillalwaysbetrade-offsÐdonÕtadoptastrategythatisso constrainedbyrulesorprocessesorÒletsbepracticalÓthattheÒvisionÓislost. 4.Whowouldimplementastrategy? TheRiverRoad/SantaClaraTransitionTaskForceinandofitselfdoesnothaveany authoritytoimplementstrategiesandactionsimpactingservicesdeliveredservice providersÐexcepttheauthorityofawellthoughtoutandpromotedstrategy.TheTask Forceneedstoconsultearlyandoften,andotherwiseworkcloselywithareaservice providersandcommunitymemberstoassurethetimelyandconsistentimplementationof anystrategy. TheTaskForceneedstothinktacticallyaboutwhatlong-termandestablishedgroupor groupsarebestpositionedtocarryforwarditsideasÐCommunityOrganizations,Special Districts,County,City,etc.Ðandforgeeffectivepartnershipswiththeseagencies. 5.Whatmeasuresorbenchmarksmightbeusedtodecidewhichoptions/actionsshould becomepartofastrategy? Thebenchmarksunderinthe2002UrbanServicesCommitteeReportÐTrust,Voice, Equity,andCollaboration. Thedegreetowhichtheselectedoptions/actionsarecompatiblewithStatelaw,regional policy,andlocalordinances. Theextentthatoptions/actionsareclearlyfeasiblewithintheboundariesofthetwo communities. Theelementsofaneffectivestrategy(asdescribedunder#3above). Thedegreetowhichpartnersinadvancingthestrategyoractionaretobefound(see#4 above). AtaÒgutÓlevel,dotheoptions/actionsjustseemÒfeasibleÓ. RiverRoad/SantaClaraCommunityTransitionProject8 TransitionandHeritageWhitePaperMay2006 FireProtection&EmergencyMedicalServices(EMS) CurrentSituation RiverRoad Fireprotectionandemergencymedicalservice(EMS)intheRiverRoadcommunityisprovidedtoboth in-Cityandnon-CityresidentsandbusinessesbytheCityofEugeneFireandEmergencyServices Department.Servicetonon-Cityresidentsandbusinessesinthiscommunityisaccomplishedviaa contractwiththeRiverRoadWaterDistrict,anarrangementbasedontheneedforalocalgovernmental contractingpartnerand(presumably)thecentralroleofadequatewatersupplyinfiresuppression.A smallareaoftheRiverRoadcommunitywestofNorthEugeneHighSchoolisservicedbytheSanta ClaraRuralFireProtectionDistrict(hereinaftercalledSantaClaraFire).TherearenoCityorFireDistrict firestationsinRiverRoad,althoughanewCitystationopenednearbyintheSantaClaracommunityin mid-2005,andSantaClaraRuralFireÕsStationNo.1isalsonearby. SantaClara SantaClaraFireprovidesfireprotectionandemergencymedicalservices(EMS)tonon-Citypropertiesin theSantaClaracommunitythatareprimarilyeastofStarkStreetandnorthofBeltlineRoad(although thereissometerritorywestofStarkatthefarnorthoftheneighborhoodthatisservedbySantaClara Fire).SantaClaraFirehastwofirestationsalongtheSantaClaracommunitystretchofRiverRoad,one closetoBeltlineRoadandanortherlystationnearAwbreyPark. SantaClaraFirealsoservespropertiesoutsideoftheUrbanGrowthBoundary(andtheofficialSanta Claracommunityboundary)tothenorthandtotheeast,butthisterritoryisrelativelylightlypopulated (approximately200homesoutofthe4,500intheentireSantaClaraFireservicearea).Continued annexationofSantaClaracommunitypropertiestotheCity,orawithdrawalofservicebySantaClara FiretoonlyareasoutsideoftheUGB,couldobviouslyspelltheendofthisFireDistrict.SantaClaraFire DistrictmanagementalsoindicatesthattheCitydecisionin2002toprovidedirectfireprotectionservices toSantaClaraÕsin-Cityproperties,ratherthancontractwiththeDistrict,createdasignificantfiscal imbalancebetweenDistrictrevenuesandthecostofcontinuedservicetothebalanceoftheout-of-City community.In2003,theFireDistrictbegantousecashreservestobalanceitsannualoperatingbudget. Inaddition,sincemuchofthenewlyannexedterritoryinSantaClarahasbeenpreviouslyundeveloped, annexationhasnotsignificantlyreducedFireDistrictcallvolume,evenastaxrevenuesdecline. LaneRuralFire/Rescue(hereinafterreferredtoasLaneRural)servesasmallerareaofnon-City propertieswithintheSantaClaracommunitywestofStarkStreet.LaneRuraloperatesfourstations,with theclosesttotheSantaClaracommunitybeinglocatedwestoftheNorthwestExpresswayatIrvington Street,justoutsidetheofficialcommunityboundary.InadditiontofiresuppressionandEMS,LaneRural hasprovidedambulanceserviceinSantaClaraforover20years.LaneRuralalsoincludestheNorthwest IndustrialCorridor,andalargerural,unincorporatedareaoutsideoftheUGB(representingabout70-75% oftheentireareaofthisFireDistrict).TheÒhighvalueÓindustrialpropertywithinLaneRuralmakesa substantialcontributiontotheFireDistrictÕsrelativelylowtaxrateforthelevelofservicesoffered,and alsomeans,incontrasttoSantaClaraFire,thatLaneRuralcouldmoreeasilysurvivetheCityÕsongoing annexationoftheDistrictÕsserviceterritorywithintheSantaClaracommunity. Formanyyears,EugeneFirecontractedwiththesetwoFireDistrictstoalsoprotectin-Citypropertiesin theSantaClaracommunity.TheCityelectedinJuly2002toprovidedirectfireprotectionandEMStoin- Cityresidentsandbusinesses,andestablishedatemporaryfirestationinSantaClara.AnewCityfire stationopenedintheSantaClaracommunityinthemid-2005. Presently,LaneRuralhasaÒfirstresponseÓagreementwithEugeneFirethatassumesthatfirstresponse fromEugenewillbalancefirstresponsefromLaneRural(e.g.:thereisnomonetaryexchangeforcalls). SantaClaraFireandEugenehaveasimilaragreement(EugenehowevercompensatesSantaClarafor ÒfirstresponseÓcallstoCityresidents).TheincidenceofÒfirstresponseÓcallsdeclinedwhenEugeneFire RiverRoad/SantaClaraCommunityTransitionProject9 TransitionandHeritageWhitePaperMay2006 openeditsinterimfirestationin2002,andthisdeclineshouldcontinueandperhapsacceleratewiththe openingofthepermanentCityfirestationinmid-2005. BothLaneRuralandSantaClaraFirehaveavolunteerfirefightercomponentsupportingfireprotection services,andbothFireDistrictsassertthatvolunteersareessentialtoprovidingviablefireprotection servicetothecommunity.TheCityofEugenecannotpermitCityvolunteerfirefightersbasedonits currentcollectivebargainingagreementwiththefirefightersunion.Thisparticularprovisionhasbeenin placeforapproximately15years.LaneRuralhasacollectivebargainingagreementwiththesameunion buthasnonethelesscontinuedtosustainavolunteerservice.Recently,theEugeneFireChiefstatedthat theremaybewaystoincludevolunteerfirefightersintheCityservicewereeitheroneofthetwoFire Districtsceaseoperations. Inthepast,LaneRuralandSantaClaraFirehaveconsideredthepossibilityofamerger,butthesetalks didnotyieldsuchanoutcome.LaneRuralhasexpressedconcernthatamergerwithSantaClaraFire couldeventually(ifthepaceofannexationcontinues)resultinahighertaxratefortheconsolidated districtthanthetaxationlevelpresentlyenjoyedbythepropertyownerswithinLaneRural.This circumstancecouldresultifÒout-of-UGBÓresidentialpropertiesareallthatremainfromtheoriginalSanta ClaraFireDistrict.InrecentdiscussionswiththetwoFireDistrictsandwithEugeneCityFire,allagreed thatamergerofLaneRuralandSantaClaraFirewouldnotsolvethecurrentfinancialchallenges particularlyfacedbySantaClaraFire,andmayinfactworsenandaccceleraterevenueshortfalls. TransitionandHeritageOptions RiverRoad InsofarastherearenofiredistrictsservicingtheRiverRoadcommunity,thequestionoftransitionand heritagestrategiesinthisareaappearalmostmoot.Nonetheless,theissueofthecontinuedviabilityof theRiverRoadWaterDistrict,whichbothmaintainslocalwaterlinesandretailswater(obtainedfromthe EugeneWaterandElectricBoard)tonon-Cityproperties,andcontractsforCityfireprotectionforthose samenon-Cityproperties,providesreasontoconsidersometransitionorheritageoptions.IftheWater Districtweretogooutofbusiness,therewouldbenolocalcommunityinstitutionviawhichtheCitycould pass-throughfireservicestonon-Cityproperties(excepttheoreticallytheRiverRoadParksand RecreationDistrictÐwhichisanunlikelyprospect). TransitionOptions -TheCityandtheEugeneWaterandElectricBoard(EWEB) OptionNo.1:EWEBContract negotiateacontingencyagreementforRiverRoadfireprotectionservices,withEWEBassuming thecurrentroleoftheWaterDistrict,iftheRiverRoadWaterDistrictweretoceaseoperations. EWEBisafirmlyestablishedgovernmentalagency,andwouldnotfacea Advantages: shrinkingcustomerandtaxbasesuchastheRiverRoadWaterDistrictwill experienceasincorporationcontinuesapace. TheroleoffireservicecontractormaynotinterestEWEB Challenges: ÐTheCitycontractswithSantaClaraFireorLaneRuralto OptionNo.2:FireDistrictContract protectunincorporatedresidentsandbusinessesinRiverRoad(againonlyiftheRiverRoad WaterDistrictweretoceaseoperations). Mayhelptosustainlocalinstitutions(e.g.:thetwofiredistricts)alreadyinthe Advantages: businessoffireprotection NeitherSantaClaraFirenorLaneRuralmayhavetheoperationalcapacityto Challenges: expandtoRiverRoad,northeabilitytodevelopneededphysicalinfrastructure; EugeneFireisexpandinginthegeneralareaalready(e.g.:newSantaClaraCity firestation) RiverRoad/SantaClaraCommunityTransitionProject10 TransitionandHeritageWhitePaperMay2006 . OptionNo3:CityProvidesNon-CityFireProtectionServicewithoutPass-Through -ThelogicalconclusiononceallpropertieswithinRiverRoadareincorporated(butone Contract thatcreatesissuesofequityuntilthathappensÐseebelow) Challenges CityisalreadytheproviderforallresidentsandbusinessesinRiverRoad,either Advantages: directlyorthroughcontractwitthelocalwaterdistrict Absentanothersolution(seeabove),iftheRiverRoadWaterDistrictwereto Challenges: ceaseoperationsbeforethecommunitywasfullyincorporated,theCitymaybe placedinthedifficultcircumstanceofbeingcompelledtoprovideservicetonon- Citypropertiesinconsiderationofoverarchingpublicsafetyconcerns,butwithout anyformofcompensation HeritageOptions ÐEugeneFireisalreadytheserviceproviderforallfireprotectionandEMStoallresidents None andbusinessesinRiverRoad.ThereareessentiallynoÒheritageÓservicesorcharacteristicsto besustainedforthisservice(exceptperhapsthataSantaClaraFireorLaneRuralexpansion intoRiverRoadmighthelpsustainthosetwoFireDistrictsastheamountofnon-Cityproperty shrinksduetoincorporation). SantaClara AsignificanttransitionisalreadyunderwayinSantaClarawiththeopeningoftheCityÕsnewfirestationin 2005(andtheCityÕspriordecisionin2002toprovidedirectservicetoin-Cityresidentsandbusinessesin thisneighborhood).ThischangeinservicepolicyendedtheCityÕspaymenttoSantaClaraFiretoprovide firecallstoin-Cityresidentsinthecommunity.ThelossofthisfundinghasresultedinSantaClaraFire operatingatadeficitsince2003,andhavingtoÒbackfillÓitsannualoperatingbudgetwithnowgradually decliningcashreserves. TransitionOptions ÐLaneRuralandSantaClaraFire OptionNo.1:ContinueCurrentFireDistrictServices continuetoprovidefireprotectionandEMSservicestoallnon-Citypropertieswithintheir respectivezonesuntilsuchtimeasthecommunityisfullyincorporated. Sustainstwoinstitutionsandgovernanceoptionswithalong-standingpresence Advantages: inthecommunity(includingthevolunteerfireservice) TheexpandedpresenceofEugeneFire(e.g.:directservicetoCityresidentsby Challenges: EugeneFireratherthancontractservicethruthetwoFireDistricts)combined withgraduallydecreasingfiredistrictserviceterritoriesandchangingservice needsandcostsmaytestthetwoDistrictÕsviabilityandresources(most particularlySantaClaraFire). ÐTheassumptionofservicetoin-City OptionNo.2:FireDistrictsServeEntireCommunity propertiesbyEugeneFirein2002,combinedwiththeconstructionofanewCityfirestationin SantaClararendersthisoptionpracticallymoot. ÐSantaClaraFireand/orLaneRuralcontracts OptionNo.3:ExpandFireDistrictServices withtheCitytoonceagainprovideservicestoallin-CitypropertiesintheSantaClaracommunity, and/orpotentiallytotakeovertheCityÕscontractwiththeRiverRoadWaterDistrictforfire protectionintheRiverRoadcommunity. Again,thecircumstancedescribedinthepreceding OptionNo.2maymakethisalternativeessentiallymoot. Createsauniformagencyandleveloffireservicebetweenthetwocommunities; Advantages: sustainsimportantcommunityinstitution(s)andlocalgovernanceopportunity RiverRoad/SantaClaraCommunityTransitionProject11 TransitionandHeritageWhitePaperMay2006 RequiresahighlyunlikelyreversalonthepartoftheCityofEugenewithrespect Challenges: tofireservicetoin-CitypropertiesinSantaClara;theresourcesofSantaClara Fireand/orLaneRuralmaybeoverextendedbysuchanexpansion. ÐThetwoFireDistricts OptionNo.4:CityAssumesServicetoAllSantaClaraProperties servingtheSantaClaracommunitywithdrawfromalldirectfireprotectionandEMSserviceto non-CitypropertiesinsidetheUrbanGrowthBoundary(UGB),andtheCitycontractswiththe SantaClaraWaterDistricttoÒpass-throughÓfireservicetotheentirecommunity(asispresently doneintheRiverRoadcommunitywiththeRiverRoadWaterDistrict). PutslocalfireservicewithintheUGBunderasingleprovider;asannexation Advantages: proceedsEugeneFirewilleventuallybethesoleprovideranyway. Potentiallyimportantlocalinstitutions,suchasthevolunteerfirefightercorps,will Challenges: belost;aformoflocalcommunitygovernance(serviceondistrictboards)isalso lost;theSantaClaraFireinparticularisleftwithsignificantlyreducedterritoryto serveandwouldprobablynolongerbefinanciallyviable;issuessurroundingthe continuedlong-termviabilityoftheSantaClaraWaterDistrictaresimilarto circumstanceswithRiverRoadWaterDistrict(seeOptionNo.3above);the SantaClaraWaterDistrictmaynothaveaninterestinbeingafireservice contractor. ÐSuchanoptioncouldbecombined OptionNo.5:LaneRuralandSantaClaraFireMerge withtheexpansion,statusquoorwithdrawaloptionsdescribedabove.Asdescribedunder ÒCurrentSituationÓabove,thisoptionhasbeendiscussedpreviouslybetweenthetwoFire Districts,andhaspotentiallyseriousnegativeconsequences.InascenariowheremostofSanta ClaraFireÕsterritorywithintheUGBisannexedtoCityofEugene,amergerwithLaneRuralmay betheonlypracticalwayforremaininghomeswithintheformerSantaClaraFireDistrictto receivefireservice. Reducesthenumberoffireserviceprovidersinthecommunity,helpstosustain Advantages: alocallygovernedinstitution(includingvolunteerbrigades);avoidstheissueof someout-of-UGBresidentslosingfireprotectionservices Priormergerdiscussionshavenotbeensuccessful;ultimatelyamergeddistrictÕs Challenges: taxratecouldincreaseovercurrentrates,potentiallyresultinginreduced services;mergerwouldnotstopthepaceofannexationandtheresultantdecline interritoryservicedbythemergedFireDistrict HeritageOptions TheprecedingtransitionoptionsbegthequestionforwhatismaybethebiggestÒheritageÓfactorin community-basedlocalfireservice:thefateofthecorpsofcommunitymembersthatcometogetherto protecttheirneighborÕslivesandpropertythroughvolunteerservicewiththetwoFireDistricts. Note:the followingoptionswouldofnecessityhavetobemadeinconcertwithotherdecisionstocontinueor modifyfiredistrictserviceswithintheUGB. ThetwoFireDistricts,facedwitha OptionNo.1:LettheVolunteerServicesLapseÐ potentiallydeclininglocalrecruitmentbase(e.g.:residentsofnon-Citypropertieswithintheir serviceterritoriesaredecliningbecausethepaceofannexationisquickening),couldsimplyallow thevolunteercorpstolapseovertime. Note:LaneRuralclaimstobeverysuccessfulinrecruiting volunteersfromoutsideofitsserviceterritory,thusmitigatingsomeofthisconcern. None(totheFireDistricts)althoughsomecurrentadministrativeandtraining Advantages: costsmaynotbeincurred;Citywouldnothavetocreateavolunteerservice(as peroptionsbelow). MaycreatestaffingshortagesfortheFireDistrictsthatcanonlybemitigatedby Challenges: increasedpayroll;meanstheendoflongestablishedcommunityinstitutions RiverRoad/SantaClaraCommunityTransitionProject12 TransitionandHeritageWhitePaperMay2006 Fromtheperspectiveofpreserving OptionNo.2:SustaintheCurrentVolunteerServices- communityheritagethereislesstobegainedbyworkingtosustainavolunteercorpsthat primarilyservesasthetrainingandtestinggroundforfuturepaidprofessionals.Thismaymake thisoptionmoreorlessimportantwithinthecontextofacommunityheritagestrategydepending ontheemphasisandneedsofthetwoFireDistrictsinrecruitingvolunteers. Sustainsanimportantoutletforcommunityinvolvement;keepsFireDistrict Advantages: operationalcostsdown TheÒpoolÓofpotentialvolunteersmayshrinkasmorepropertyinSantaClarais Challenges: annexed(seecaveatunderOptionNo.1above) -AsEugeneFirecurrentlyhasno OptionNo.3:CreateEugeneFireVolunteerService volunteerfirefighterprogram,thismaybeaconsiderableinstitutionalchangeforthisCityservice (especiallysincethecurrentCitycollectivebargainingagreementprohibitsavolunteer firefighters).Nonetheless,thereisnoessentialdifferencebetweenafireservicevolunteer programandvolunteerprogramsinlibrary,parks,andotherservices,andthisissomethingmany citiesencourageandpromote,exceptofcourseforthemuchgreaterprobabilitythatfireservice volunteerswillbefacedwithlifethreateningandliabilityincurringsituations. :Providesanoutletforpresentandfutureresidentswhowishtovolunteerinthe Advantages areaofpublicsafety;indirectlysustainsacurrentSantaClaracommunity institution :Eugenecurrentlyhasnovolunteerservice,andsuchanoptionmaynotÒfitÓ Challenges financiallyoroperationallywithinCityFireDepartmentplans;theCityÕscurrent collectivebargainingagreementwillnotallowtheCitytoÒemployÓvolunteer firefighters. MiscellaneousOptions AnotherpotentialÒheritageÓ MiscellaneousFireOptionNo.1:CommunityMeetingSpace- optionforthefireservice,albeitunrelatedtothevolunteerinstitution,butrelevanttosustaining communityactivitycenters,isforfirestationfacilitiestoincorporatecommunityandeventmeeting space(suchasavailableattheRiverRoadParksandRecreationDistrictfacility).AÒPhase2Ó expansionoftheCityÕsnewfirestationwouldincludesuchmeetingspace,andSantaClaraFireÕs StationNo.2nearAwbreyParkhasacommunitymeetingroom. Providesahighlyvisibleandstablegatheringplaceforcommunityactivities; Advantages: reinforcestheroleoftheÒfirehallÓasacommunitycenter(andperhaps encouragesexpandedcommunityinvolvementinvolunteerservice,etc.) CurrentCityfireservicefacilitiesdonothavethespaceorstaffingto Challenges: accommodateregularcommunitymeetingsandevents WhatAnotherCommunityHasDone Therearenumerousexamplesthatcanbefoundoffiredistrictsthatprovidethesolefireprotectionand EMSservicewithinincorporatedcities.inWashingtonCounty, TualatinValleyFireandRescue(TVFR) OregonprovidesfireprotectionandEMSservicesinunincorporatedcountyareasandinseveral incorporatedcities,andcurrentlymaintainssixfirestationswithvolunteercomponents.AsTVFRhas grown,severalall-volunteerfirebrigadesandstationshavebeenabsorbedintotheDistrictandaserious commitmenthasbeenmadetosustainandemploythisvolunteercontingent.Aswithanyvolunteer opportunity,successandlongevitydependonclearguidelines,training,andrealworkresponsibilities beingprovidedtothevolunteercorps. RiverRoad/SantaClaraCommunityTransitionProject13 TransitionandHeritageWhitePaperMay2006 LibraryServices CurrentSituation ThereappearstobetwoprimarycommunityissueswithrespecttolibraryservicesinRiverRoadand SantaClara.First,therearenopubliclibraryfacilitiesineithercommunity,irrespectiveofthepotential operatingjurisdiction(city,countyorspecialdistrict)orstatusofacommunitymemberasanin-Cityor non-Cityresident.ThereareactuallyonlythreeCitylibrarybranchesinallofEugene,thuswhilethelack ofabranchwithineitherSantaClaraorRiverRoadmaybeanissuewithlocalresidents,therearemany otherneighborhoodsinEugeneinsimilarcircumstances.ThenearestCitylibraryiswithinanapproximate 15minutedriveofthetwocommunitiesÐtheCityÕsBethelbranchlibrarywestofHighway99. Second,non-CityresidentsdonothavetheoptionofusingtheirÒownÓ(e.g.:LaneCounty)libraryservice atall,simplybecauseLaneCountydoesnotprovidelibraryservices.Thenon-profitLaneLibraryLeague haspromotedtheideaoflibrarydistrict(s)intheCounty,andin2005votersapprovedtheformationofa librarydistrictintheCreswellcommunitycoincidentwiththelocalschooldistrictboundary.Thislocalized servicedoesnot,however,benefitRiverRoadandSantaClararesidents(althoughitmayprovidethe ÒseedÓforlongertermregionaloptionstolibraryservices).Thus,allRiverRoadandSantaClara residentsmustleavetheirneighborhoodstoaccesslibraryservices,andnon-Cityresidentsmustincur theexpenseofpurchasingnon-residentlibrarycardsfromtheCity(althoughthisistrueforallnon- residentswishingtouseEugeneÕslibraryfacilities). AnewÐandsmall-volunteerlibraryopenedinmid-2005intheRiverRoadWaterDistrictbuildingjustoff ofRiverRoad.ThisvolunteerefforthasbeensupportedbytheLaneLibraryLeagueandfriendsofthe EugeneLibraryandhasreceivedin-kindprofessionaladvicefromCityLibrarystaffandotherin-kind support.Thevolunteerlibraryhasalsobenefitedfromsupportfromthetwoneighborhoodsintheformof cashdonations,in-kindassistance,andbookdonations.Thevolunteerlibraryiscurrentlyopenforlimited hours,fourdaysaweek. Themostbasiclibraryserviceneedandquestionisandwillprobablyalwaysremain,Òwhereismylocal communitybranch?ÓCurrentCitylibraryexpansionplansdonotidentifyeitherRiverRoadorSantaClara communitiesasatoppriorityforanewbranchlibrary(anewbranchinsouthwestEugeneisÒtop-ratedÓ), nordolong-rangeplanscontemplateanythinglikealibrarybranchineveryEugeneneighborhood.Inthe absenceofacommunitylibrarybranch,programssuchasaccessprovisionsforspecialpopulations,or in-kindorothersupportforthenewvolunteerlibrary,couldhavepositiveimpactswithrespecttoactual andperceivedlibraryservicelevelsinRiverRoadandSantaClara. TransitionandHeritageOptions TransitionOptions GiventhelackofÒdirectÓ(exclusivelyinthesenseoftherebeingnoSantaClaraorRiverRoadbranch library)libraryservicesineithercommunity,transitionoptionsarelimited. Afee-for-cardapproachmitigatestaxinequityissuesfor OptionNo.1:FeeReductionsorWaiversÐ non-CityresidentsusingCityfacilities,althoughitdoesnotmitigateanyÒabilitytopayÓissues,something theoreticallyaccommodatedbyataxsupportedpublicservice.ÒImprovingÓaccesstolibraryservicesfor specialpopulations(seniors,youth)throughfeereductionsorwaiverscouldbeconsidered.Special accessprovisionsforyouthcardshavebeenpreviouslyconsideredbutrejectedbytheEugeneCity Council. ProvidestangibleevidenceofCitysupportforlocalcommunityneeds;coststo Advantages: theCitycouldberelativelylow;recognizesthattherearespecialneeds populationsmeritingspecialconsideration RiverRoad/SantaClaraCommunityTransitionProject14 TransitionandHeritageWhitePaperMay2006 MaygenerateequityconcernsamongCityresidents;aÒspecialpopulationsÓ Challenges: policywouldhavetobeappliedCity-wide;costsmaybelowincomparisonto otherCityoperationalbudgets,butmaybehighwithinthecontextoftheCity librarybudget. .Therearealreadysomemutualsupportactivities(such OptionNo2:SupportforVolunteerLibraryÐ asin-kindprofessionaladvice)underwaybetweenthevolunteerlibraryandtheCity.TheCitymaywishto consideranagreementwiththevolunteerlibrarygroupforothersupportsuchassharedcirculations, prioritycallatsurplusbooksalesordonations,andaccesstosurplusescomputers(orCitycomputer ÒbuysÓ). ProvidestangibleevidenceofCitysupportforanewlocalcommunityinstitution; Advantages: coststotheCityÕsoverallbudgetcouldberelativelynegligible CostsinthecontextoftheCityLibrarybudgetcouldbemoresignificant;theCity Challenges: alreadygivespreferencetofriendsoftheLibraryforsurplusbooks Libraryservicescouldbelocatedandoperatedaspartofexisting Option3:ÒStorefrontÓLibraryÐ communityinstitutionsandfacilities(suchastheRiverRoadParksandRecreationDistrict).Location withinschoolsorotherpublicbuildingsmightalsobeconsidered,aswellasinseparatecommercial buildingspace,orevenaspartofthespaceoccupiedbyaspecificcommercialbusiness. ÒStorefrontÓservicescouldrangefromsimpledropoff/pickupdepots,totheoncemorecommonbook- mobile(anoptionthathasdeclinedovertimeduetohighrelativecostsinmostcommunities),to computerizedbookkioskswithincommercialbusinesses,toleasedordonatedspace(althoughthislast optionwouldsaveonlyonanyinitialcapitalcostsofanewbranchlibrarybuilding). Apotentiallylowercost(comparedtoafullbranchlibrary)toprovidephysical Advantages: libraryservicesinthetwocommunities;potentialforcooperationand strengtheningofexistingcommunityinstitutions(suchastheParksDistrictor volunteerlibrary) OperationalcostsmaynotbewithinthemeansoftheCityLibrarybudget;a Challenges: storefrontlibraryprogrammayhavetobedevelopedCity-wideandRiverRoad andSantaClaramaynotbetheÒfirstinlineÓ HeritageOptions AstheonlylibraryservicefortheRiverRoadandSantaClaracommunitiesiseitherthroughtheCityÕs Libraryorthroughthestart-upSantaClaravolunteerlibrary,itmayappeartobeinconsistenttodiscuss anylibraryservicesalternativeasaheritageoption,inthesensethatÒheritageÓimpliesawellestablished localresourceorcharacteristicmeritingpreservation.Nonetheless,giventhelimitednumberof institutionsineithercommunitythatprovideforplace-namedcentersofcommunityactivityandgathering, optionsthatcouldfacilitatethecreationofsuchcentersareappropriatelyconsideredunderthisheading. .Regionallibrarydistricts,orlibrary OptionNo1:Multi-jurisdictionalLibraryCooperativeÐ cooperativesconsistingofcounty,cityandspeciallibraries,havebeenformedinmany communities.TheLaneLibraryLeaguehasbeenpromotingthisidea.Suchco-opsmaybe underwritten(inpartatleast)byregionallibrarytaxmeasures,andparticipatinglibrariesmaybe compensatedforcirculationstopartiesinotherjurisdictionsbyÒpercircÓreimbursementsfunded bythetaxmeasures.Thistaxoptioniseasiesttoimplementifthereisalreadyajurisdiction providinglibraryserviceregion-wide(e.g.:acounty),althoughtherearenotechnical(but probablymanypolicyorbudget)reasonswhyLaneCountycouldnotÒsponsorÓaco-op. Itwouldbeanopenquestionwhetheraco-opconsistingofthecitylibrariesofEugene, SpringfieldandJunctionCitywoulddeliverenoughÒcriticalmassÓ.Theadditionoftherecently approvedCreswelllibrarydistrictandotherdistrictsinthefuture(perhapsencompassingmany smallercommunitiesinLaneCounty),couldhelpprovidesuchcriticalmass.Inthelong-term,a librarycooperativemightalsogeneratethecapitalfortheexpansionofphysicallibraries,although RiverRoad/SantaClaraCommunityTransitionProject15 TransitionandHeritageWhitePaperMay2006 inco-opexamplesidentifiedinOregon,theindividualco-opmembersretainprimaryresponsibility fortheirowncapitalneeds. EliminatesequityissuesofCityornon-Cityresidency,everyonewouldbecitizen Advantages: ofthecooperative;thepotentiallylargertaxbase,broaderpopulation demographics,andlargergeographicareaoftheco-opmayfacilitatetaxpayer support;atleastinitiallytheco-opcanbeformedandgrowthrough intergovernmentalagreements(e.g.:anewspecialdistrictdoesnotnecessarily havetobevotedin) ItisnotwithintheauthorityoftheCitytocreatesuchanentityonitsown, Challenges: negotiationswithmultiplegroupscouldbeprotracted;inLaneCountyitmaynot beassimpleastostartwithintergovernmentalagreementsÒbindingÓtogether existinginstitutionscoveringmostofthepossiblenewserviceterritory;formation ofaco-opwouldnotnecessarilyleadtolibrarybranchesbeingphysicallylocated inRiverRoadorSantaClara(oranywhereelseforthatmatter). Probablymostcentraltotheperceivedlibraryservice OptionNo.2:CityBranchLibrary- needsandaspirationsoftheRiverRoadandSantaClaracommunitiesisthelackofabranch libraryineitherarea.Nonetheless,withonlythreelibraryfacilitiesintheCity,itwouldappearto behardtoarguethatthelackofalibrarybranchinthesetwocommunitiesisanygreaterinequity thanforotherpartsoftheCity.Thecapitalorleasecostofanewlibrarybranch,combinedwith anestimated(bytheCity)annualoperatingcostof$600,000,doesnotappeartobodewellfor newbranchfacilitiesinRiverRoadorSantaClara(oranywhereelseintheCity)inthenear future.Furthermore,thelibraryco-opmodeldiscussedinHeritageOptionNo.1abovewouldnot inandofitselfsolvethisproblem. ÒSolvesÓthemostcentralissueinoneaction;providesthephysicalfacilityfor Advantages: whatwillprobablybetheÒultimateÓlibraryserviceprovider;providesapotential communityÒcenterÓ. PrioritizationofanewbranchwouldprobablyhavetobeanoutcomeofaCity- Challenges: wideprocess;evenifprioritized,thecapitalorleasefunding(andoperational costs)ofanewbranchlibrarymaynotbeavailable WhatAnotherCommunityHasDone Inotherregions,multi-jurisdictionallibraryco-opshavebeenmosttypicallyformedwherethereisan existingcountyserviceandamultiplicityofcitylibraries.ThisisnotthecaseinLaneCounty,wherethere isnocountysystem,andfewcitysystems.The WashingtonCounty(Oregon)CooperativeLibrarySystem isalongestablished(mid-1980Õs)exampleofsuchacooperative.Itmustbecautionedthatthe WashingtonCountyco-opisdistinguishedfromtheLaneCountysituationinthattheco-opcameonthe scenewithafullrosterofmembercitylibrarydepartmentsandlibrarybuildingsalreadyinplace. Nevertheless,aco-opmaybesomethingtoconsider,especiallyasitcoulddrawincountytaxpayersto thelibraryfundingpicture.hasalsoformedacity/countylibrarycooperative ClackamasCounty(Oregon) andbeensuccessfulinsecuringtaxpayersupportinthepast.Boththesecooperativeshavehadfunding measuresrejectedbythevotersintherecentpast. RiverRoad/SantaClaraCommunityTransitionProject16 TransitionandHeritageWhitePaperMay2006 CommunityGovernance CurrentSituation GovernanceisnotaÒserviceÓinthesenseoftheotherservicesÐparks,fireprotection,planning,water supply,etc.-discussedastransitionandheritageoptionsinthisWhitePaper.Governancepersewas alsonotidentifiedasastand-alonetopicinthe2002RiverRoad/SantaClaraUrbanServicesCommittee Report.Nonetheless,effectivecommunitygovernanceisabenchmarkbothinthe2002Committee ReportandinmanyoftheideaspresentedinthisWhitePaper,suchasformationofalibrarycooperative, sustainingexistingspecialservicedistricts,etc. Therearetwocommunitygovernanceideaswhichmeritdiscussionoutsideofthespecificframeworkof anyoftheparticularurbanserviceoptionsdescribedinthisWhitePaperÐCityCouncilrepresentation, andtheauthorityofCity-recognizedCommunityOrganizations.Cityresidentswithinthetwocommunities canparticipatefullyinCitygovernance,uptoandincludingserviceonCityelectedandappointedbodies. AllarearesidentscandothesameforCountybodiesandprograms.Notwithstandingthis,andgiventhe annexationandurbanizationtransitionsthatSantaClaraandRiverRoadaregoingthrough,most communityattentionwillprimarilyfocusnowandinthefutureonCityactions,programsandpolicies. TheEugeneCityCouncilidentifiedÒlaunchaneighborhoodinitiativeÓasoneoftheireightpriorityissues for2005,andiscurrentlyconsideringanactionplandefiningthisinitiative.Thiscouldbeapotential vehicleforchangestocommunitygovernanceintheRiverRoadandSantaClaracommunities(andfor manyoftheotheroptionsdiscussedelsewhereinthisWhitePaper). RiverRoad RiverRoadiscompletelywithinasingleCityofEugeneCouncilward(Ward#7).MostoftheRiverRoad communityisinCountyCommissionDistrict#4(asmallportionisinDistrict#1).TheRiverRoad CommunityOrganizationhasbeenveryactive.Inaddition,RiverRoadhasitsownparksandrecreation districtandlocalwatersupplyspecialservicedistrict SantaClara SantaClaraissplitbetweentwowards(Wards#7and#5)alongtheaxisofRiverRoad.Thiscommunity isrepresentedattheCountybyCommissionDistrict#1.TheSantaClaraCommunityOrganizationis active;andSantaClaraisservedbytwofiredistricts(SantaClaraFireandLaneRural)andalocalwater supplyspecialservicedistrict. TransitionandHeritageOptions TransitionOptions Inthesensethatsustainingorimprovingcommunitygovernancecansustaintheheritageofa community,allsuchoptionsarediscussedbelowassuch. HeritageOptions .-Equalrepresentationandpopulationrequirements OptionNo1:CityCouncilRepresentation oftenrenderitimpossibletomakepoliticalboundariescoincidentwithcommunityboundaries. Nonetheless,actionbytheCitytore-apportionCouncilwards,eitherbyincludingboth communitieswithinasingleward,orbyhavingthedividinglinealongtheaxisofBeltlineRoad (thusmakingthewardboundariesmoreconsistentwithacceptedcommunityboundaries)might makearearesidentsfeeltheiraccesstoCityelectedofficialswasimproved(oratleastsimpler). TherecouldbeasimilaradjustmentbytheCountytodivideDistricts#1and#4completelyalong BeltlineRoad.TheCitydidamajorreapportionmentafterthe2000censuswhichreducedthe RiverRoad/SantaClaraCommunityTransitionProject17 TransitionandHeritageWhitePaperMay2006 numberofCouncilwardsintheareafromthreetotwo,butinthenormalcourseofeventswould notundertakeanotherchangeuntilafterthe2010Census. Thecurrentin-CityareasofRiverRoadandSantaClaradonothaveenoughpopulationto establishwardscoincidentwithofficialcommunityboundaries.Alargescaleannexationinthe twocommunitiesthatbroughtinasignificantnumberofnewcitizenstotheCitycouldmerita Òmid-decadeÓreapportionment.TheCitycouldundersuchcircumstanceselecttoreapportionthe wardspriortothenextcensus,usingadjustedresultsfrom2000.CurrentCitywardscontain approximately17,500personsperward,soitwouldrequireaverylargeannexationand developmenttobemerited,forexampleallannexationofalltheremainingunincorporated territoryinRiverRoad. MakescommunityaccesstoelectedofficialsÒsimplerÓ;allowstheneighborhoods Advantages: tospeakasÒonevoiceÓtoÒoneelectedrepresentativeÓ. Oneperson,onevoteÓrequirementsandpopulationdistributionandnumbers Challenges:Ò maynotmakere-apportionmentasdescribedhereinfeasibleuntilafter2010or longer. TheCityhasprovidedÒlimitedÓ OptionNo.2:CommunityOrganizationRecognition- recognitiontotheRiverRoadandSantaClaraCommunityOrganizations,eventhoughthesetwo organizationsalsorepresentasubstantialnumberofnon-Cityresidents.Presently,Òlimited recognitionÓmeansthatCityfundingforpublicinformationandnewslettersispro-ratedbasedon thepercentageofin-Cityresidentsintheneighborhood,andtheCitydoesnotprovidestaffor financialsupportforanyCommunityOrganizationoutreachactivitiesorsupplies. TheCitymightwanttoconsiderfull(orfuller)CommunityOrganizationrecognitionforSanta ClaraandRiverRoad,eventhoughthesetwocommunitiesarenotfullyannexedtotheCity (simplyasagoodwillgestureifnothingelse).TheCitycouldalsoconsiderloweringthethreshold forfullCommunityOrganizationrecognition. Treatsthetwocommunitiesasfull(orfuller)membersofthelargerCity Advantages: community,whichovertimetheyareexpectedtobecome;buildsgoodwill. MayraiseequityissueswithotherCommunityOrganizationsthatalready Challenges: representfullyannexedneighborhoods. .TheCitycouldexamine OptionNo3:ExpandCommunityOrganizationResponsibilitiesÐ waystofurtherÒempowerÓCommunityOrganizationsbysendingavarietyofCitypolicyand programdecisionstotheCommunityOrganizationforreviewandrecommendations. GivesthelocalcommunitiesamoredirectvoiceinavarietyofCitydecision- Advantages: makingactions;couldattractawidervarietyofcitizenstoserveonCommunity Organizationboardsandparticipateinmeetings WouldhavetobeapolicyappliedCity-widetoCommunityOrganizations;adds Challenges: anothersteptoCitydecision-makingprocesses(andpotentiallyonethancould takealongtimetocomplete);anyCommunityOrganizationrecommendations wouldbeadvisory(whichcouldaddtodiscontentifrecommendationsarenÕt followed);maybepracticallydifficulttosortoutissuesthatareappropriateto refertotheCommunityOrganizations AsnotedaboveandelsewhereinthisWhite OptionNo.4:SustainExistingSpecialDistrictsÐ Paper,bothcommunitieshaveanumberoflocalspecialservicedistrictsÐparks,fire,andwater ÐthatcontinueprovideimportantserviceswithinthecommunityThiscircumstanceisprobably . animportantcontributortothecontinuedstrongsenseofcommunityinbothRiverRoadand SantaClara,evenasincorporationanddevelopmentchangestheareasfromruralto urban/suburban.Pleaseseespecifictransitionandheritageoptionsregardingthesespecial servicedistricts(andandelsewhereinthisWhitePaper. AdvantagesChallenges) RiverRoad/SantaClaraCommunityTransitionProject18 TransitionandHeritageWhitePaperMay2006 Parks,OpenSpaceandNaturalAreas CurrentSituation Parks,OpenSpaceandNaturalAreasareaddressedseparatelyfromRecreationServicesforthree reasons.Thecurrentformsoflocaldeliveryoftheseservicessuggestsalogicaldivisionbetween recreationandparks(forinstancetheCityoperatesparksservicesoutofthePublicWorksDepartment, andrecreationservicesoutofaRecreation,LibraryandCulturalServicesDepartment).Secondly,open spacepreservation(and/orthegradualdisappearanceofopenspaceevenifsuchspaceissimply privatelyownedÒfallowÓlandofnodistinctconservationoragriculturalvalue)isakeyÒdriverÓinhow residentsofcommunitiesintransitionreacttogrowth.Finally,theproximityofbothcommunitiestothe WillametteRiverGreenway;and,inthecaseoftheSantaClaracommunity,proximitytothe Eugene/SpringfieldUrbanGrowthBoundary(UGB),provideuniqueopportunitiesforpreservingopen spacesthatcanhelptosustainelementsofthetwocommunitiesruralheritage. AsdiscussedinmoredetailundertheRecreationsectionofthisWhitePaper,theRiverRoadsParksand RecreationDistrictprovidesrecreationservicesandmaintainsoneparkandrecreationcenter(Emerald Park)intheRiverRoadcommunity,butdoesnototherwisemanageopenspacesornaturalareas.River RoadParksdoesprovidesomerecreationprogramsoff-siteinleasedfacilities.Thereisnocomparable specialservicedistrictservingtheSantaClaracommunity.TheCityoperatesitsparksandopenspace servicesandfacilitiesthroughadivisionofthePublicWorksDepartment.LaneCountyalsoprovides parksservices,andistheoperatoroftworiversideboatlandingsontheWillametteRiveradjacenttothe SantaClaracommunity. TheCityisundertakingorplanningnumerousparksupgradesandacquisitionsintheRiverRoadand SantaClaracommunities,primarilyutilizingdevelopment-generatedsystemdevelopmentcharge(SDC) fundsandthe1998Cityparksandopenspacebondmeasuretofundtheseimprovements.TheCityis presentlyconcludinganupdateofitsParks,Recreation,andOpenSpaceComprehensivePlan,which includesaproposedcommunityparkinSantaClara,anumberofneighborhoodparkacquisitions,anda linearparkandnaturalareaalongtheWillametteRiver.TheCityisalsointheprocessofcompletinga naturalfeaturesinventory,tocomplywithnewrulesrequiredbyStatewidePlanningGoal5,with particularemphasisonwetlandsandstreamcorridors.Astreamcorridoracquisitionprogramisfunded throughstormwateruserfees,withseveralpriorityacquisitionsintheSantaClaraarea. Inaddition,theMetropolitanWastewaterManagementCommission(providerofregionalsanitarysewer services)hasacquiredalargeamountofopenspacenorthoftheSantaClaracommunityandoutsideof theUGBforpoplarfarms,biosolidsmanagement,andseasonalwastewatertreatment.Giventheuses contemplatedfortheseWastewaterCommissionsites,however,publicusageasaccessibleopenspace mayobviouslybegreatlylimited,ifnotaltogetherproscribed. Finally,aproposalwasunderpublicreviewin2005foraUGBÒlandswapÓanddevelopmentagreement involvingpropertiesbothwithintheSantaClaracommunityandinanotherpartoftheCitythatwould secureanew77acresiteinthenorthwestportionoftheSantaClaracommunity.Someresidentsofthe SantaClaracommunityhaveproposedanalternativeparkandrecreationdevelopmentscenario. Currentlythislandswapproposalhasbeenshelved. RiverRoad TheWillametteRiverGreenwayimmediatelyabutstheeasternedgeoftheRiverRoadcommunityfroma wastewatertreatmentplantinthenortheastcornerofthecommunitytothecommunityÕssouthernmost boundary.Exceptforonesmallprivatelyownedlot,theCityÕs67acresofriverGreenwayiscontinuous andadjacenttotheRiverRoadcommunity,andawestbankpedestrianandbikewayhasbeen constructedformostofthislength.Greenwayimprovementsandfacilitiessuchasriveraccesspointsand RiverRoad/SantaClaraCommunityTransitionProject19 TransitionandHeritageWhitePaperMay2006 facilities,signage,andotherparkactivitynodesareotherwiselimited.Therearethreenamedparks associatedwiththeGreenwayÐRasor,Jacobs,andWestbank-withparkingimprovements,restrooms, andapicnicarea(atJacobs). Inadditiontoactivesportsfieldsassociatedwithschools,therearethreemajorparksinRiverRoadÐ EmeraldPark(operatedbytheRiverRoadParksandRecreationDistrict);the5-acreBramblewoodPark operatedasaneighborhoodparkbytheCity;andtheCityÕsfuture20-acreWalnutGrovePark,aÒnatural area"includingapondandstreamandwesternpondturtlehabitat.Inaddition,thereisthesmaller RosettaPlacePark,a1.2acreneighborhoodpark.Cityparks(includingtheGreenway)aremaintained andoperatedoutoftheParksandOpenSpaceDivisionoftheCityPublicWorksDepartment.Mapping wouldindicatethatwithafewexceptions,mostnaturalstreamcorridors,openwater,andwetlandsinthe RiverRoadcommunityhavebeensignificantlyalteredoreliminatedbypriordevelopment. SantaClara IncontrasttotheRiverRoadcommunityd,theeasternboundaryoftheSantaClaracommunitydoesnot immediatelyabuttheWillametteRiverÐconsiderableacreageoflargerfarmandestatetractssitbetween SantaClaraandtheriver.TheseinterveningtractsarealsooutsideoftheEugene/SpringfieldUGB. Greenwaylandshavenotbeenacquiredinthisarea,andthereforenotrailsorGreenwaypublicfacilities presentlyexist,althoughLaneCountydoesownandoperatetworiversidefacilitiesÐWhitelyLanding andHillmanLanding. TheSantaClaracommunitydoesnothavealocalparksandrecreationdistrictasisthecasewithRiver Road.TheCitydoesownandoperateseveralparksintheSantaClaracommunity.Theseparksare managedoutoftheParksandOpenSpaceDivisionoftheCityPublicWorksDepartment.Thelargest andoldestisAwbreyParkwhichwasrecentlyrenovatedwith1998parksbondfunds.Thisparkincludes neighborhoodparkfacilities,naturalareasandastreamcorridor(SpringCreek).The6-acreArrowhead Parkisalsoslatedforamixedneighborhoodpark/naturaldevelopmentandincludesaportionofFlat Creek.OtherCityparksinSantaClaraincludeTerraLinda,LoneOak,FilbertMeadows,Ferndaleand Wendover.Mappingwouldindicatethat,withafewexceptions,mostnaturalstreamcorridors,open water,andwetlandshavebeensignificantlyalteredoreliminatedbypriordevelopment. TransitionandHeritageOptions TheCitycouldprovideservicesthatwouldfacilitatetheurbantransitionoftheRiverRoadandSanta ClaracommunitiesbyengaginginacquisitionsthatpreservelandsforarangeofopenspaceactivitiesÐ significantnaturalareas,riveraccess,neighborhoodparks,andsportsfields.Eventhepreservationof ordinarywoodlotsandfarmfieldscanprovideafeelingthatthecommunityissecuringsomeofitsrural heritage.CommunitiescanbothgrowinpopulationANDsustainsignificantopenspaceresourcesby identifyinganddesignatingawiderangeofremainingnaturalsystems,byadoptingpoliciesthatcallfor suchlandstobepreservedeitherbygovernmentacquisitionorbyset-asidesinthedevelopment process,andbydesigningcreativecompensationpoliciesforlandownersthroughSDCcredits,density transfersandthelike.ThesystemcaninpartbecomeÒself-perpetuatingÓoncethedevelopment communityexperiencestheaddedvalueaccruingtodevelopablelandsabuttingtheresourcelandsthey haveÒbypassedÓordedicatedasanoutcomeofCityandcommunityheritagepolicies. Animportantconsiderationinanyopenspacetransitionandheritagestrategiesisintegrationwithother transitionandheritageoptions.InthecaseofthisÒParks,OpenSpaceandNaturalAreasÓsectionofthis WhitePaper,asignificantopportunityexistsforintegrationwithsurfacewatermanagementplansand programs.SurfacewatermasterplanningisunderwaybytheCityandLaneCounty,asisperiodicreview oftheCityÕscomprehensiveplanincludingprotectionsforspecifiedstreamcorridorsforbothopenspace andsurfacewaterqualityandquantitybenefits.Openspacepreservationgoalscanbestrengthenedby consideringsurfacewaterbenefitsandviceversa.PleaseseetheseparateÒSurfaceWater ManagementÓ,ÒStreetsÓandÒLandUsePlanningÓchaptersofthisWhitePaperforadditionaldiscussion. RiverRoad/SantaClaraCommunityTransitionProject20 TransitionandHeritageWhitePaperMay2006 Pleasenote:FortheParks,OpenSpaceandNaturalAreassectionofthisWhitePaper,transitionand heritageoptionsarenotsortedbyspecificcommunity.Inaddition,someoptionsdiscussedunderthe RecreationchapterofthisWhitePapermaybesuitableforjointimplementationwiththeParks,Open SpaceandNaturalAreaoptionsdiscussedbelow. TransitionOptions Thetransitionoptionsidentifiedbelowarethosethat,whilerelevanttothecurrentRiverRoadandSanta Clarasituations,couldbeappliedinanyareasintheCity,andthatdonÕtnecessarilyhaveadirectimpact insustainingacommunityÕsruralÒlookandfeelÓ.Inaddition,asnotedaboveandundertheÒLandUse PlanningÓandÒSurfaceWaterManagementÓchaptersofthisWhitePaper,priordevelopmenthasaltered oreliminatedmostcontinuousstreamcorridorsinthesetwocommunities,andleftrelativelyfew undevelopedtractsofanysortwithinthecurrentUGB.Thereforeoptionsforadditionalopenspace preservationmaybelimited,atleastbeyondthosebeingidentifiedbycurrentCityparksplanning processesandnegotiations. Continuetoupgradeexistingparks OptionNo.1:ParkandOpenSpaceUpgradesandAcquisitions- andopenspaces,and/oracquirenewparksandopenspacesasdevelopmentprocessesandassociated developmentdedications,credits,andSystemDevelopmentCharge(SDC)collectionsallow. CityalreadyhasaprogramunderwayfundedbySDCÕsandparksbonds;builds Advantages: ontheresourcesalreadyestablishedinthecommunities;development dedicationsrequirenoorlowoutofpocketcosts Propertiesavailablethroughdevelopmentdedicationsmaynotnecessarilybe Challenges: thoseofmostÒvalueÓwithrespecttocommunityÒheritageÓorlongrangeCity plans;inSantaClarasuchanapproachdoesnotaddressthepotentialforan extensionoftheWillametteRiverGreenway,asthissectionisoutsidetheUGB, andnotsubjecttoCitydevelopmentregulations. TheCitycouldsetasidetheSDCfunds Ð OptionNo.2:DesignationofParksCapitalFunding collectedinRiverRoadandSantaClara,anddedicatesaidfundsexclusivelytolocalcommunitypark capitalprojectsandlandacquisitions. AssureslocallygeneratedSDCparksfeesarespentlocally;potentiallyexpands Advantages: thecapacityoftheCity(andinthecaseofRiverRoad,theParksandRecreation District)toservethesetwocommunities. LevelofSDCÕsarecalculatedbasedonentireCityneed,andallocationtothe Challenges: communitiesmaybecontrarytooverallparkscapitalplans;Statestatutes governingSDCcalculationsmaynotallowsuchasegregation;segregationof parksfundinginthismannermaysetaprecedentthatotherCityareasmaywant tofollow;aneighborhoodbyneighborhoodallocationofSDCÕsCity-widecould actuallyreducefundingforSantaClaraandRiverRoad;increaseincapital facilitiesmeansincreasingoperationalcostsforwhichtheremaynotbefunding HeritageOptions Asnotedabove,thecontinuedpresenceofevenfarmfieldsandordinarywoodlandscanplayan importantroleinsustainingtheruralÒfeelÓofacommunity.HeritageoptionsinthecontextofthisWhite PaperchapterarethosethatdirectlyaddresstheissueofpreservingtheruralÒlookandfeelÓoftheRiver RoadandSantaClaracommunities.Heritageoptionsforopenspacecouldfocusonpreservingthe remainingsegmentsofstreamcorridors,woodlands,wetlandsandothernaturalareasleftinthetwo neighborhoods.Itisassumed,however,thatthereisnomeansbywhichtheCitycaneffectivelyfacilitate orregulatethepreservationofremainingÒordinaryÓfarmlandsoutsidetheUrbanGrowthBoundary (UGB)exceptbyfirstmakingchangestothatboundary. .Suchanapproach OptionNo1:EmphasizeParksAcquisitionoverParksDevelopmentÐ focusesontheshrinkinginventoryofopenspacesandundevelopedlandsinthetwo RiverRoad/SantaClaraCommunityTransitionProject21 TransitionandHeritageWhitePaperMay2006 communitiesandemphasizesacquiringthelandbasenowanddeferringimprovementsand upgradestothefuture. PreserveslandsnowthatcouldbeÒlostÓtootherusesiflimitedCityparks Advantages: resourcesareÒdividedÓbetweenparksacquisitionanddevelopmentpriorities Someresidentsmayfeelthatcurrentparksneedtobedevelopedtotheir Challenges: potentialbeforenewlandsarebroughtintopublicownership OptionNo.2:EmphasizeOpenSpaceandNaturalAreaAcquisitionsovermoreÒActiveÓ -Similartotheprecedingoptionexceptitputsadditionalpriorityon ParkSiteAcquisitions acquiringlandsthatpreservewoodlands,streamcorridors,wetlands,etc.ascomparedtolands thataresuitablefordevelopmentintoparksitesdedicatedtomoreactiveuses(everythingfrom playgroundsstructurestoballfields). PreserveslandsnowthatcouldbelostifCityparksresourcesareÒdividedÓ Advantages: betweenactiveandpassiveparksacquisitionpriorities Someresidentsmayfeelthatneighborhoodandsportsparksareagreaterneed Challenges: inthecommunity .Adoptneworrevisedlanduseanddevelopment OptionNo3:CityDevelopmentPolicies- policiesthatemphasizeopenspaceandnaturalareapreservationandthatrequirenewor revisedspecifictypesofparkandopenspaceprotections,set-asidesanddedications,impact fees,andintegrationwithotherCitypoliciesandplans(suchassurfacewatermanagement). Citycouldchoosetoemphasizeopenspacesandnaturalareaswithitslanduse Advantages: regulatoryauthority Locallanduseauthoritycanonlygosofar,evenifCityandregionalplans Challenges: effectivelyÒbackstopÓsuchauthority;wouldrequireaCity-widepolicydecision Theproximityofbothcommunitiesto - OptionNo.4:GreenwayAcquisitionandDevelopment theWillametteRivercorridorisnotnecessarilyreadilyapparent.Anopenspacecomponentofa heritagestrategycouldincludedevelopingandimprovingsites,access,signage,and infrastructurethathighlighttheRiveranddrawcommunityresidents(andcitizensfromother areas)tothisspecialresource.TheRivercorridor(inconjunctionwiththeUGB)alsoprovides anothersignificantÒheritageÓfunctionÐformingadistinctÒgreenÓboundarythattellsvisitorsand residentsalikethattheyhavearrivedintheRiverRoadandSantaClaracommunity,aplace whererivervistasandsenseofplaceisstillpartofaurbanizinglandscape. Preservesthemostsignificantopenspaceamenityleftinoradjacenttoboth Advantages: communities;potentiallyprovidesaccesstolandsandwaterthatcan accommodateawidevarietyofnaturalarea,passiveandactiverecreation amenities. ThereisnoGreenwayalongtheSantaClarasectionoftheRiverandthelocation Challenges: oftheRiveroutsideoftheUGBasitflowsadjacenttoSantaClaradoesnot facilitateactiveCityparticipationinacquisitionanddevelopment(noracquisition throughdevelopmentdedications);inbothcommunitiesthereisconsiderable development(andinthecaseofSantaClaraconsiderabledistance)betweenthe Riverandthenorth-southRiverRoadarterialstreet;costofGreenway acquisitionandimprovements WhatAnotherCommunityHasDone RiverRoad/SantaClaraCommunityTransitionProject22 TransitionandHeritageWhitePaperMay2006 Thedevelopedaprogramtopreserveinpublicownershipnearlyallofthat CityofSherwood,Oregon communityÕs100-yearfloodplain,streamcorridor,wetlands,significantwoodlot,andvistas,evenasit becamethefastestgrowing(bypercentage)cityinOregoninthe1990Õs.BasedonSherwoodÕsparks andopenspacemasterplanadoptedin1992,about19%ofthegrossareawithintheUGBwasplanned tobesetasideasopenspacebybuild-out(includingactivesportsandrecreationlandsassociatedwith SherwoodSchoolDistrictproperty).Sherwoodalsotookanactiveroleinpreservingkeyrivercorridors outsideofthelocalUGBbyforgingpartnershipswithothernaturalareaproviders(inthiscasetheMetro regionalgovernmentandtheU.S.FishandWildlifeService),particularlyintheestablishmentofthe TualatinRiverNationalWildlifeRefugeandTonquinGeologicAreaSignificantNaturalArea. RiverRoad/SantaClaraCommunityTransitionProject23 TransitionandHeritageWhitePaperMay2006 LandUsePlanning CurrentSituation BoththeRiverRoadandSantaClaracommunitieshavebeentransitioningfromruralunincorporated neighborhoodstourbanizedcommunitiesformanyyears.TheCityhashadplanningauthorityoverthe entiretyofbothcommunitiesviaintergovernmentalagreementwithLaneCountyforcloseto20years. Thetwocommunitiesareundergoinggradualandincrementalannexationandurbanizationrangingfrom relativelymajorsubdivisionstolargelotpartitionstoin-fillorredevelopment.Ruralsubdivisionpatterns arebeingsupplantedbycontemporarydevelopments,oldercommercialbusinessesmustcompetewith newshoppingcentersonBeltlineRoad,andopenfieldsandwoodlotsaredisappearing.Someolder roadsinCountyjurisdictionroadsarebeingre-constructedtofullCitycollectorandarterialstandards. Populationandtrafficisincreasing.Newresidentsarearrivingwithdifferentdemandsandperspectives fromthoseneighborsthatmayhavelivedinRiverRoadandSantaClarafordecades.Servicesthathave beenprovidedforyearsbylocalinstitutions(suchaslocalparksandwaterdistricts)areundernew pressurestoaddressanewÒgenerationÓofcitizenneeds,andsomespecialservicedistrictsarealso experiencingdecliningrevenuesasduetoannexationandshiftstoCityserviceproviders. ThesituationdescribedaboveisnotunusualoruniquetoSantaClaraorRiverRoad.Such circumstanceshavebeenrepeatedacrossOregonandthenationfordecadesasruralcommunitiesgrow andbecomeurbanneighborhoodsandcities.Giveneconomicrealities,populationgrowth,landuselaws (bothcommunitiesarewithinEugene/SpringfieldUrbanGrowthBoundaryandthuslongslatedfor urbanization),changingdemographics,propertyrightsissuesandmore,bothRiverRoadandSanta Clarawillcontinuetoincorporateandurbanize.Akeycommunityissuethereforeistheextenttowhich thesetwocommunities(andtheCity)cancooperativelyidentifythemostimportantelementsoftheir ÒruralÓheritageandacttopreservesuchattributesevenasincorporationanddevelopmentadvances apace.OtherchaptersofthisWhitePaperdescribearangeofoptionswithrespecttoservicessuchas publicsafety,parksandrecreation,andstreets.ThisÒLandUsePlanningÓsectionfocusesonthebroader landuseplanningcontextwithinwhichsuchservicesaredelivered. TheCity(insomecasesinpartnershipwithLaneCounty)hasseveralplanninginitiativesunderwaythat willimpactandpotentiallybenefitRiverRoadandSantaClara.Manyoftheseinitiativesaredescribed hereinandinotherchaptersofthisWhitePaper,includingamastersurfacewatermanagementplan,a reviewofÒcontextsensitiveÓstreetstandards,andparkssystemsupgrades.TheCityisalsoundertaking aÒperiodicreviewÓ(aprocessmandatedbyOregonlanduseplanningstatutes)ofitsComprehensive Planthatwillincludeprotectionsforspecificstreamcorridors.Suchprotectionsareconsistentwith neighborhoodHeritagestrategiesoutlinedintheÒStreetsÓ,ÒParksandOpenSpaceÓandÒSurfaceWateÓ chaptersofthisWhitePaper. RiverRoad TheRiverRoadcommunity,particularlysouthofHornStreet,ischaracterizedbylongeast-westblocks. BetweenHornandHowardStreettherearemanylongnorth-southblocksandsomelonglocalstreets thatsimplydeadend.ThesestreetpatternswouldÒdateÓtheareaasolderthanotherpartsofthe community.TheRiverRoadcommunitynorthofHowardtoBeltlineRoadhasasubdivisionandlocal streetpatternthatlooksmoretypicallycontemporaryandurbanthansouthofHoward(e.g.blocksare shorter,thereismoreregularpatternofconnectivitybetweenstreets,etc.),althoughthepatternisstill verygrid-like.TheBramblewoodParkdevelopmentisanexceptiontothischaracterization,exhibitinga mixofcul-de-sacandcurvilinearstreetsthatindicateamorerecentsubdivision. ThereappearstobeonlyacoupleoftractsleftintheRiverRoadcommunitythatcouldaccommodate substantialnewresidentialdevelopment,thereforethepotentialformostnewhousingwillbelimitedto singlelotorsmalltractprojects,orre-developmentandin-fill.Newercommercialdevelopmentis concentratedalongBeltlineRoadwitholdercommercialdevelopmentalongportionsofRiverRoad. Approximately30%ofRiverRoadhasbeenannexedtotheCitythrough2005. RiverRoad/SantaClaraCommunityTransitionProject24 TransitionandHeritageWhitePaperMay2006 TheCityinitiatedahistoricsitessurveyandstudyfortheRiverRoadcommunityin2005.ThisÒHistory ProjectÓasithasbeentermedcanservethedevelopmentofacommunityheritagestrategywell,and shouldbothinformandbepartofanysuiteofheritagestrategiesandactionsselectedasanoutcomeof thisWhitePaper. SantaClara ThesubdivisionpatternoflocalstreetsintheSantaClaracommunityisgenerallymoreuniformthanin thecaseoftheRiverRoadcommunity.Asageneralcharacterization,subdivisionsinthemoresoutherly partsofthiscommunitylookmuchlikethatbetweenHowardandBeltlineintheRiverRoadcommunity. SubdivisionsgraduallybecomemoreÒcontemporaryÓ(e.g.:morecul-de-sacsandgrid-likewithfewer perfectlyrectangular,2:1ratiolots)thefurthernorthonegoesintoSantaClara.Thereisalsoahigh coincidencebetweenthesemorecontemporarysubdivisionsandincorporationintotheCity.Incontrastto RiverRoad,approximately40%ofthecommunityhasbeenannexedasof2005.Whiletherearemore andlargerundevelopedtractsinSantaClarathanintheRiverRoadcommunity,SantaClaraisstill relativelyclosetobuild-out(atleastbasedontheparameteroflargertractsthatcouldbesubdivided).In- fillandredevelopmentisalwaysapossibility,especiallyinolderpartsofthecommunity.Commercial developmentisconcentratedalongBeltlineRoad. TransitionandHeritageOptions Lowerordifferinghousingdensities,ÒruralÓbuildingdesignstandards,provisionsforpreservingtreed streetscapesandexistingstreetsections,requirementsandimprovementssupportingneighborhood commercialzones,andopenspaceretentionareallpotentialelementsinpreservingtheruraland communityheritageandidentityoftheRiverRoadandSantaClaracommunities.Theseandother alternativesarediscussedservicebyserviceinotherchaptersofthisWhitePaper.Nonetheless,themost effectivewaytoanalyzealternativesandreachconsensusonsuchadiversityofplanningandservices issuesisprobablyNOThowtheyaretreatedwithinthecontextandlimitationsofthisWhitePaper(e.g.: throughtakingupeachissueseparately).Simplyput,thebestwaytoreasonablyassurethatselected transitionorheritagestrategiesandactionsconsideralltheoptionsavailable,andmoreimportantly considerdifferentserviceoptionsastheyplayoffagainstoneanother,isthroughcomprehensive communityplanningefforts. TransitionOptions TransitionandheritageoptionsarenotdistinguishedforthepurposesofthisWhitePaperchapter(see thediscussionunderÒHeritageOptionsÓbelow).Also,notethatmanyofthetransitionandheritage optionsdiscussedelsewhereinthisWhitePaperunderÒParksÓ,ÒStreetsÓ,andotherservicespecific chaptershaveimportantplanningelementsandimpacts.Thetwooptionsdiscussedbelowarethosenot touchedondirectlyelsewhereinthisWhitePaper. HeritageOptions ÐThisoptioniseffectively OptionNo.1:CommunityTransitionPlanningandFacilitation underwayandfundedbytheCity.Oneoutcome,forinstance,willbethisWhitePaper,and anothermaybeasetofstrategiesandactionsthattheCityandthetwocommunities(andother stakeholderssuchasexistinglocalspecialservicedistrictsÐwater,fire,andrecreation)can agreetoandimplement.Conceivably,someelementsofthe1987RiverRoad/SantaClaraUrban FacilitiesPlancouldbeupdatedand/orexpandedaspartofacomminityrefinementplanin conjunctionwiththecurrenttransitionplanningeffort. Isalreadyfundedandunderway;addressesarelativelybroadrangeofservice Advantages: issues;allowsforthepracticalandstrategicselectionofheritageoptions; establishesavehiclefortheentirecommunitytoparticipateinplanningtheir future;uponadoptionoutcomessuchasanewcommunityvisionorrefinement RiverRoad/SantaClaraCommunityTransitionProject25 TransitionandHeritageWhitePaperMay2006 planforRiverRoadand/orSantaClaracouldpotentiallybepartofamendments totheoutdated1987UrbanFacilitiesPlan. WouldnothavethepolicystatusgiventoaCityADOPTEDplanorpolicy,may Challenges: notbeascomprehensiveorenforceableasacommunityorcity-wide comprehensiveplan;maybeperceivedasaCityeffortandoneinwhichspecial servicedistrictserviceprovidershavelittlecommitment. .Thesecouldbeindependent, OptionNo2:DevelopCommunityComprehensivePlan(s)Ð oracomponent,oftheCityÕsComprehensivePlan,whichiscurrentlyundergoingPeriodic Review. Dealswithabroadrangeofheritageandplanningissuesinacomprehensive Advantages: manner;allowsforthepracticalandstrategicselectionofthemosteffectiveand feasibleheritageoptions;establishesavehiclefortheentirecommunityto participateinplanningtheirfuture;uponadoption,providesforabenchmarkof communityagreementandconsensus Costofandcommitmenttosuchaprocessmayproveprohibitive;timing, Challenges: financialfeasibility,andpriorpolicydecisionsmayfavorsimplyproceedingwith incorporationfirst(orselectingacoupleofheritageprogramsinisolation);other planningissuesmaylegitimatelyhaveprioritywithintheCity;suchaplanning processesmayrevealmoredivisionswithinthecommunitiesthanarepresently perceived;issuesofequitymayarisewithotherCityareaswantingtheirÒownÓ plan;integratingANDadministeringaseriesofcommunityplanswitharequired overallCityplanwillbeachallenge. Bothcommunitieshavebeenconsideredforvarious OptionNo.3:NeighborhoodCentersÐ planningoptionstocreateneighborhoodcentersorÒnodesÓbasedaroundcommercialservices. Thepresenceofhistoric(andcontemporary)towncentersisavitalelementinanyheritageand communitybuildingstrategy.AsnotedundertheÒRecreationÓchapterofthisWhitePaper,the RiverRoadParksandRecreationfacilityatEmeraldParkseemstoperformmanycommunity centerfunctions,albeitnotcommercialones.TheCityhasalsoestablishedasmallLowerRiver RoadNodalDevelopmentArea(alsoreferredtoastheRasorParkMixedUseArea,namedafter alocalparksspacewithintheRiverGreenway)toencouragecommunityorientedredevelopment. Experienceelsewheresuggeststhatrevitalizedneighborhoodcenternodeshavecommon characteristicssuchasrelativelynarrowprimarycommercialstreets,somemixofnearbypublic orquasi-publicservicesandfacilities(parks,libraries,theatres,restaurants),andaviablestockof architecturallyinterestingcommercialstructuresbuiltclosetothestreet(andmoreorless contiguouswitheachother-oftenforseveralblocks).NeithertheRiverRoadarterialnorBeltline Roadgenerallyfitthisprofile.BeltlineRoadisdominatedbycontemporaryÒinward-lookingÓ commercialdevelopmentinterspersedwithtransitionaloldercommercialdevelopment.TheRiver Roadarterialischaracterizedbyscatteredoldercommercialstructuressetbackfromthestreet. Inbothcases,thesestreetsarewideandverybusy,thusfunctionallydividingpotential neighborhoodnode(s)inhalf.GiventhislackofÒnaturalÓattributesofsuccessfulneighborhood nodes,itwillbeachallengingandprobablyacapitalintensiveefforttocreatesuchnodesinalong theRiverRoadarterialandBeltlineRoad(note:theCitycurrentlyhasnoplansfornodecreation alongBeltlineRoad.PlansfortheRiverRoadarterialarehighlightedbelow). Creationoffunctioningcommunitycentersmightbeaccomplishedbyestablishingaseriesof smallerneighborhoodnodesfoldedintoexistingcommercialormixedusedevelopments,but servingareasdefinedby,ratherthansubdividedby,majorroadways(e.g.:yousimplydonÕttryto getpeopleacrossabusyroadwayinthecourseofstrollingaroundÒtheirÓneighborhoodcenter). Morecapitalintensiveneighborhoodnodecreation(atleastwithrespecttotraditionalCityand propertyownerobligations)couldbefacilitatedbydivertingthrough-traffictootherarterialsand fullyre-designingtheRiverRoadarterialandBeltlineRoadtolowerclassifications(atleastfor RiverRoad/SantaClaraCommunityTransitionProject26 TransitionandHeritageWhitePaperMay2006 intermittentsections),applyingtrafficcalmingretrofitstosuchselectareas,and/orbuildinggrade- separatedpedestriancrossingstructures. Viablecommunitiesaregreatlyenhancedbyneighborhoodcentersthatfostera Advantages: senseofplaceandcommonneighborhoodactivityandinteraction;centersare vitalinpreservingthecommunityÕsplacenameandthusitsheritage Thebuiltconfigurationofpresentcommercialcentersandabuttingstreetsdonot Challenges: lendthemselvestosupportingviableneighborhoodcenters;capitalinfrastructure coststoremoveÒbarriersÓtoviableneighborhoodcenterscouldbehigh TheCityiscurrentlydevelopingÒinfillÓstrategies OptionNo.4:NeighborhoodInfillStrategiesÐ plansandpoliciesfortheEugeneasawhole.InEugeneandinothercommunitiesaround OregonandelsewherethepracticalapplicationofÒbuildingup,insteadofoutÓisoftenresistedin reactiontoperceivedhigherdensities,ÒincompatibleÓhousingstyles,trafficimpacts,andother issues.Carefulplanningandsitedesigncanhelpinmitigatingsuchconcerns,whileattracting newresidents,businessesandinvestmentthatmayhelprevitalizethetwocommunities. Communitiescanbegreatlyenhancedbynewresidents,businesses,and Advantages: building;gradualinfillcanhavelessoverallimpacttoexistingcommunity characterthanmajornewdevelopmentsormarketdrivenincreasesinhousing densityandpopulationpermittedbygeneralzoningupgrades;infilldevelopment canbeÒdirectedÓtoÒclustersÓwhereabuttingstreets,designguidelinesandprior developmentfacilitatebetterintegrationintotheneighborhood TheÒsumÓofneighborhoodbyneighborhoodinfillstrategiesmaybecounterto Challenges: overallCitydensitygoalsandrequirements;evenrelativelymodestinfill developmentmaygenerateconcernsaboutcommunityruralorsuburbanvalues beinglost;inthenewworldofMeasure37ÒtakingsÓissuesitmaybemore difficulttolimitinfill. WhatAnotherCommunityHasDone Withrespecttoneighborhoodnodesisnotablefortheseemingly ,theCityofPortland,Oregon rd ÒspontaneousÓemergenceofmanyvibrantneighborhoodcenters(NW23,Clinton,Alberta,Hawthorne, Belmont,andNorthMississippi).Theserevitalizedneighborhoodnodeshavecommoncharacteristics suchasrelativelynarrowprimarycommercialstreets,andaviablestockofarchitecturallyinteresting commercialstructuresbuiltclosetothestreet(andmoreorlesscontiguouswitheachother--oftenfor severalblocks).NeithertheRiverRoadarterialnorBeltlineRoadfitthisprofile.Anotherinteresting characteristicofPortlandÕssuccessisthat,whiletheCityofPortlandandthePortlandDevelopment Commissionhavehadimportantroles,manyoftheserevitalizationshavetakenholdwithoutsignificant (oratleastprimary)governmentinterventionorinvolvement. RiverRoad/SantaClaraCommunityTransitionProject27 TransitionandHeritageWhitePaperMay2006 . RecreationServices CurrentSituation RiverRoad RecreationservicesintheRiverRoadcommunityareprovidedbythelongestablishedRiverRoadParks andRecreationDistrictandbytheCityofEugene.TheDistrictoperatesEmeraldPark,includinga communitycenter,indoorpool,fitnesscenter,andoutdoorrecreationalfacilities.TheDistrictoffersadult, youthandfamilysportsandrecreationalprograms.TheDistrictalsooperatestwoothersitesoffering recreationclassesÐTheAnnexatHillcrestandRiverRoad,andGymnasticsNWonPrairieRoad. TheCitymakesanannual$100,000paymenttotheRiverRoadParksandRecreationDistrictallowingin- CityresidentsofRiverRoadtouseDistrictfacilitiesandprogramsatin-Districtrates.Thispaymentis fixedanddoesnotincreaseastheDistrictÕscostsincreaseorastaxrevenuesdeclinewithannexationsto theCity.ThereisnoreciprocalagreementorpaymentpermittingRiverRoadnon-Cityresidentstouse Cityfacilitiesatin-Cityrates.DistrictfacilitiesandprogramsarealsousedbySantaClaracommunity residentswhopayout-of-Districtfees. CityrecreationservicesareprovidedthroughEugeneÕsLibrary,RecreationandCulturalServices Department.AwidevarietyofCityrecreationservicesareavailabletoRiverRoadresidentsatvenues andsitesaroundEugene.Anafter-schoolrecreationprogramisadministeredbytheCityatKellyMiddle SchoolinRiverRoad,fundedbyaProjectRisingExpectationsGrantinpartnershipwithEugeneDistrict 4-JPublicSchools.SpecificCityparksfacilitiesarediscussedinmoredetailundertheÒParks,Open SpaceandNaturalAreasÓchapterofthisWhitePaper.EugeneÕsCity-ownedparksareoperatedand maintainedbytheCityPublicWorksDepartment. Presently,theRiverRoadParksandRecreationDistrictdevotesapproximatelythreetimestherateof taxesper$1,000torecreationservicesthandoestheCity.Tobefair,however,economiesofscaleare reflectedintheportionoftheCityÕstaxratethatisdevotedtorecreationservices,andnomulti-purpose taxingentityisprobablyevergoingtoexceedthecommitmentofasingle-purposeagencyservinga smallercommunity.Therefore,taxratesdevotedtorecreationarenotaveryusefulbarometerrelativeto levelofservice. In2004Ð2005therewerediscussionsbetweentheCityandtheRiverRoadParksandRecreation DistrictaddressingthestageatwhichallornearlyalloftheRiverRoadcommunityisincorporatedand thecircumstancesandtermsunderwhichtheDistrictmightÒsunsetÓasaspecialservicedistrict.Issues suchastransferofDistrictstaff,continuationofbenefits,interimgovernance,andlikeconcernshave beentheprimaryfocus.Thesediscussionsarecurrentlyonhold. SantaClara Nopubliclyownedand/oroperatedcommunityorrecreationcentersarelocatedintheSantaClara, exceptfortheGymnasticsNWfacilityoperatedbytheRiverRoadParksandRecreationDistrict.City recreationservicesareprovidedthroughEugeneÕsLibrary,RecreationandCulturalServicesDepartment. AwidevarietyofCityrecreationservicesareavailabletoSantaClararesidentsatvenuesandsites aroundEugene.TheCityadministersanafter-schoolrecreationprogramatMadisonMiddleSchoolin SantaClara,fundedbyaspecialtaxlevythatexpiresinJune2007.Also,inpartnershipwithEugene SchoolDistrict4J,theCityjointlydevelopedandadministerstheartificialsurfaceplayingfieldatNorth EugeneHighSchool. AllparkswithintheSantaClaracommunityareownedandoperatedbytheCity.LaneCountyoperates tworiversideboatlaunchesthatareclose-bybutoutsideoftheformalcommunityboundaryandtheUGB. PleaseseethechapterofthisWhitePaperentitledÒParks,OpenSpaceandNaturalAreasÓformore discussion. RiverRoad/SantaClaraCommunityTransitionProject28 TransitionandHeritageWhitePaperMay2006 Therearenorecreationservicesdirectly(e.g.:atin-Cityorin-Districtfeerates)availabletonon-City SantaClararesidents,asthereisnoneighborhoodparksandrecreationdistrictasintheRiverRoad community(andLaneCountydoesnotproviderecreationservices).AllSantaClararesidentsmayuse RiverRoadParksandRecreationDistrictfacilitiesandprogramsbypayingout-of-Districtfees.Santa ClararesidentsrepresentupwardsofhalfoftheoverallpatronageofParksDistrictprograms.Non-City SantaClararesidentscanalsouseCityrecreationfacilitiesandprogramsbypayingout-of-Cityfees. TransitionandHeritageOptions RiverRoad Giventheapparentpopularitywithbothtax-andfeepayersoftheRiverRoadParksandRecreation District,andlimitedCityrecreationprogramsdeliveredphysicallywithinthecommunity,theCityandthe ParksDistrictmayconsiderfocusingonsolutionsthatperpetuatetheDistrictforaslongaspossible, rathertheninnegotiatingforitsend.AviableRiverRoadParksandRecreationDistrictmayalsopresent someopportunitiestoprovidemorecommunityrecreationservicesinSantaClara(seeoptionsbelow). PleasenotethatsomeoftheoptionsdiscussedhereinforperpetuatingtheRiverRoadParksand RecreationDistrictmayfacesignificantlegalandpracticallimitations.Putmostsimply,atthepointat whichpropertiesintheDistrictarefullyincorporatedintotheCity,theDistrictwouldhavenopropertyleft totaxtogenerateoperationalfunds.Evenifalternativefundingcouldbefound,underStatestatutes (ORS222.510)thecontinuedoperationoftheDistrictwouldnotbepermitted.Anycontinuanceofthe DistrictpastthepointofcompleteincorporationintotheCitywouldhavetoinvolvetheCitywithdrawing fromprovidingrecreationservicestotheneighborhood(ortheCityasawhole),andcedingsuchservices toanexpandedDistrictorsomeotherprovider(suchasWillamalaneParksandRecreation).Theseand relatedissuesarediscussedlaterinthischapteroftheWhitePaper. SantaClara TheabovediscussionregardingtheRiverRoadParksandRecreationDistrictbegsthequestionofwhat happensintheSantaClaracommunity,whichhasnocomparablecommunitygovernedrecreation service.Atsomepointinthepast,anexpansionofRiverRoadParksandRecreationtoincludeSanta Claramighthavebeenapotentialoption.Thepaceoflargetractincorporationandnewdevelopmentin theSantaClaracommunity,andtheotherissuessurroundingthecontinuanceoftheDistrict,evenwithin itscurrentserviceterritory,mayrenderexpansionasanideawhoseÒtimehaspassedÓ. Alternatively,theRiverRoadParksandRecreationDistrictcouldeffectivelyexpandtoSantaClaraby contractingwiththeCitytotakeoverCityrecreationservicesinthatcommunity.Issuesmitigatingagainst thisisthefinancialabilityoftheRiverRoadParksandRecreationDistricttoundertakeanynecessary capitalimprovements(orleaseofsuitablespace)inSantaClara,thepresentlylimitedscopeofCity recreationprogramsdeliveredphysicallywithinthecommunity,andwhetherasufficientfundstransfer couldbeobtainedfromtheCitysothatDistricttaxescollectedfromtheRiverRoadneighborhoodwere not,ineffect,partlyÒtransferredÓtoSantaClaratosubsidizenewprogramsand/orfacilities.Finally,there mightbesomereactiononthepartofRiverRoadresidentsoverÒtheirÓparksandrecreationdistrictÕs attentionandfinancesbeingÒdivertedÓbySantaClaraexpansionobligations. Importantnote:AlthoughtheoptionspresentedbelowareorganizedintoÒtransitionÓandÒheritageÓ alternativesandalsofurthersortedbycommunity,thisisonlyforthepurposesofclarityanddescription. Theremaybemanyreasonsfortwoormoreoptionstobeselectedandcombinedintoanoverallstrategy forrecreationservicestotheRiverRoadandSantaClaracommunities. TransitionOptions Recreationservicetransitionoptionsarethosealternativesthatsupportcontinuedrecreationprograms andservicesinoneorbothofthecommunities,butforwhichtheultimateoutcomeistheeventual replacementofthelocallygovernedservicewithaCity-wideorregionaloption. RiverRoad/SantaClaraCommunityTransitionProject29 TransitionandHeritageWhitePaperMay2006 RiverRoadTransitionOptionNo.1:ImmediateRiverRoadParksandRecreationDistrict ÐTheDistrictwouldsimplyceaseoperationsanddisposeofitsassetsasitseesfit Dissolution andtotheextentthereisamarketforsuchassets. RecognizestheprobableÒultimateÓparksandrecreationserviceconfigurationfor Advantages: RiverRoadundercurrentregionalpolicy(e.g.:Cityprovidesserviceswithinits boundaries) EliminatesapopularandsuccessfulcommunityinstitutionperhapsÒbeforeits Challenges: timeÓ;meansthelossofalocalgovernanceoptionforthecommunity;potential loseofacommunityÒcenterÓ(ifnooperatorforEmeraldParkisfound) Negotiatean RiverRoadTransitionOptionNo.2:DissolutionAgreementwithCityÐ agreementwiththeCityfortransitiondecision-making,timingofdissolution,disposalortransfer ofassets,andtransferofemploymentofDistrictstaff (note:suchanagreementwasthesubject ofactivediscussionbetweentheDistrictandtheCityin2004-2005,andcouldstillbea pragmaticelementofanoverallstrategyforsustainingtheDistrictforaconsiderableperiodof time). ProvidesclaritytothetimingoftheDistrictÕsdissolution,disposalofassets,future Advantages: ofDistrictemployees,etc. LocalinvestmentinandsupportoftheDistrictmaydiminishoncethetransitionis Challenges: underway;maysendthewrongmessagetoDistricttaxpayersandpatrons(e.g.: thattheDistrictnolongerneedscommunitysupportorpatronage). RiverRoadTransitionOptionNo.3:ContractforRecreationServicesthroughCity- NegotiateanagreementwiththeCitythatspecifieslong-termdecision-makingarrangements, timingofthetransitionoftheDistrictfromadirecttoacontractserviceprovider,disposalor transferofassets,andtransferofemploymentofDistrictstaff.Districtwouldcontinueasa governancebodybutallserviceswouldbesuppliedbytheCityundercontract( similartohowthe CityprovidesfireprotectionservicestoallofRiverRoadthroughacontractwiththeRiverRoad ). WaterDistrict ProvidesclaritytothetimingoftheDistrictÕsdisposalofassets,futureofDistrict Advantages: employees,etc.;continuesanelementofcommunitygovernanceinrecreation servicedeliveredtoRiverRoad(e.g.:theDistrictwouldstillbeanindependently governedspecialservicedistrict) LocalinvestmentinandsupportoftheDistrictmaydiminishoncethetransitionis Challenges: underway;stilleliminatesmanyelementsoflocalcontrol;mayweakenand diminishstatusoftheDistrictasakeylocalinstitution AstherearecurrentlynoÒresidentÕrecreationservicesfor SantaClaraTransitionOptionsÐ non-CitypropertyinSantaClara,therearenoservicestotransitionandthusnotransitionoptions todelineate.OptionsforrecreationservicestothiscommunityarediscussedunderSantaClara HeritageOptionsbelow. HeritageOptions HeritageoptionsarethosethatwillsustaintheRiverRoadParksandRecreationDistrictasaviable communityserviceproviderfortheforeseeablefutureorcreateotherviableentitiesforprovidinglocally governedrecreationservices. Continueto RiverRoadHeritageOptionNo.1:MaintainCurrentServiceArrangementsÐ provideRiverRoadParksandRecreationDistrictservicesasatpresentwiththecurrentout-of- DistrictfeesandCitypaymentstructure.Amajorimpedimenttothelong-termviabilityofthis optionisthecontinuedpaceofannexationcombinedwithfactorsasincreasesinoperatingcosts andthefixedlevelofCitysupportpayments.Practicallyspeaking,fortheÒstatusquoÓtobe RiverRoad/SantaClaraCommunityTransitionProject30 TransitionandHeritageWhitePaperMay2006 maintainedinthelong-term,theCitywouldhavetoagreetosomesortofscheduledincreasein supportpaymentstiedtoabenchmarksuchastheconsumerpriceindex,landvalues,ortherate ofdeclineintheDistrictÕstaxbaseduetoannexation. Statusquoismaintained,elementoflocalgovernance(e.g.:locallyelected Advantages: specialdistrictgoverningboard)ismaintained AsincorporationofpropertiesinRiverRoadcontinues,theDistrictÕstaxbasewill Challenges: shrink-eventuallytothepointthatthecombinationoftaxes,Citypayments,and out-of-DistrictprogramfeesmaynolongeradequatelyorlogicallysupportDistrict servicesandfacilities;atthepointatwhichtheDistrictisdowntooneproperty (theoreticallythiswouldbeEmeraldPark)anannualCitytransferpaymentof approximately$1.2millionwouldberequired(note:thisestimateisbasedonthe 2005Districtoperatingbudget). ÐWithrespectto RiverRoadHeritageOptionNo.2:ExpandCurrentAgreementwithCity justtheRiverRoadcommunity,includeprovisionsinamodifiedagreementwiththeCityallowing Cityresidentfeesfornon-CityresidentswishingtouseCityprogramsandfacilities. Note:see furtherdiscussionbelowonSantaClaraforadditionalrelatedoptions. MirrorsthecurrentaccommodationthatEugenemakesforCityresidentsinRiver Advantages: RoadwishingtouseDistrictfacilitiesandprograms;encouragescooperation betweenCityandDistrictservices PotentiallydrawsoffpatronagefromDistrictfacilitiesandprograms;alsotothe Challenges: extentthatDistrictpaymentstotheCityundersuchanagreementmay counterbalancecurrentCitypaymentstotheDistrict,theDistrictÕsoperations maybeanetloser. -Expand RiverRoadHeritageOptionNo.3:ExpandDistrictServiceswithinRiverRoad servicesbeyondcurrentagreementsbetweentheCityandDistrictbydevelopingacontract wherebytheDistrictcontinuesandexpandsitsÒhomegrownÓservicesandpotentiallybuys additionalservicesfromtheCity(orfromotherserviceprovidersforthatmatter),ORtheCity simplycontractswiththeDistricttobethedirectproviderofallrecreationservicesinthe community. Note:insomerespectsthisoptionisnotallthatdifferentfromsomeofthe agreementsthatarecurrentlyinplaceorbeingconsidered.Theimportantdistinctionisthe centralbenchmarkthatallpartieswouldstartfromÐthattheDistrictneedstobepreservedasa communityinstitutionandprimaryserviceproviderforaslongaspossible(ratherthantheDistrict needstonegotiateitsorderlydissolution).ThissameÒbenchmarkÓcanapplytootherheritage optionsdiscussedherein. TheDistrictwouldmaintainitsautonomyandstatusasanimportantlocally Advantages: governedentity;agrowingserviceproviderismorelikelytosucceedasalong- termserviceprovider;concernsoverthefuturestatusofDistrictemployees,the gradualerosionoftheDistrictÕstaxbasethroughannexation,keepingSDC revenuewithinthecommunity,etc.couldbefurthermitigatedthroughcontract terms. TheDistrictprobablycouldnotprovidealltherecreationservicesavailable Challenges: throughtheCity(suggestingthepossibleneedforÒreverseÓcostreimbursements toEugenetomakeCityprogramsavailabletoRiverRoad);someRiverRoadin- CityresidentsmaypreferdirectservicebyEugene;theCityprovidesmany recreationservicestoRiverRoad(justnotphysicallywithinRiverRoad);other thingsbeingequal(suchasadequatefundingandotherresources)theCity couldprobablybringsomecostefficienciestorecreationprogrammingbeinga largerentitythanevenanexpandedDistrict. . SantaClaraHeritageOptionNo1:ExpandRiverRoadParksandRecreationDistrict TheCitycouldcontractwiththeRiverRoadParksandRecreation ServicestoSantaClaraÐ RiverRoad/SantaClaraCommunityTransitionProject31 TransitionandHeritageWhitePaperMay2006 Districttoservein-CitySantaClararesidentsinmannerroughlysimilartohowtheEugeneWater andElectricBoard(EWEB)retailswaterservicesthroughthetwolocalwaterdistricts,howthe CityprovidesfireprotectionthroughtheRiverRoadWaterDistrict,andhowtheCityonce contractedwithSantaClaraFireforfireprotectionservicestoin-Cityresidentsofthatcommunity. PotentiallyprovidestheDistrictwithmorerevenueandpatronagebyexpanding Advantages: itsbase;theDistrictwouldpotentiallystrengthenitsautonomyandstatusasan importantlocallygovernedentity;doesnÕtrequirevoterapprovalofaDistrict boundarychange;providesSantaClarawithmoredirectaccesstolocally governedrecreationservices;opensupopportunitiesforDistrictdevelopedand operatedcommunityfacilitiesinSantaClara. NoteveryCityrecreationprogramofferedinorforSantaClaramaybeinthe Challenges: interestof,orfeasiblefor,theRiverRoadParksDistricttooperate;revenues generatedbyaSantaClaraexpansionmaynotmatchdemandforservices;the CityprovidesmanyrecreationservicestoSantaClara(justnotphysicallywithin SantaClara);patronsoftheDistrictmaypreferthattheDistrictconcentrate exclusivelyonRiverRoad;someSantaClarain-Cityresidentsmaypreferdirect servicebyEugene;doesnÕtnecessarilysolvetheissueofservicetonon-City residents;costofbuildingthenecessaryphysicalrecreationfacilities. SantaClaraOptionNo.2:ExpandRiverRoadParksandRecreationDistrictBoundariesto RiverRoadincorporatesSantaClaraintoitsspecialservicedistrictboundary. SantaClaraÐ PotentiallystrengthenstheParksDistrictandimprovesitschancesof Advantages: ÒlongevityÓ;givesSantaClaraanewgovernanceoptionandcommunity governedservicearoundwhichtobuildandsustainitssenseofcommunity. SomeSantaClararesidentsmaypreferCityrecreationservices(andbeingable Challenges: toobtainsuchservicesforin-Cityrecreationfees);boundarychangerequiresa vote;paceofannexationandnewdevelopmentinSantaClaramaymakethisan ideawhoseÒtimehaspassedÓ;theCityprovidesmanyrecreationservicesto SantaClara(justnotphysicallywithinSantaClara);patronsoftheDistrictmay preferthattheDistrictconcentrateexclusivelyonRiverRoad;newtaxesand feesgeneratedbytheexpansionoftheDistrictmaynotbesufficienttomeet SantaClaraÕsdemandsforDistrictservices;costofbuildingthenecessary physicalrecreationfacilities. MiscellaneousOptions MiscellaneousoptionsarethosethatdonotfitÒneatlyÓwithinthedefinitionsoftransitionandheritage optionsand/orthatcontemplatechangesthatcouldsignificantlyimpactbothofthetwocommunities and/ortheEugene/Springfieldmetropolitanareaasawhole. - MiscellaneousOptionNo.1:CreateorExpandaRegionalRecreationServiceProvider CurrentStatestatutesdonotallowforspecialservicedistrictstooperatewithincitiesifthecity andthedistrictprovidethesameservice.Thus,forsomeoptionsdiscussedabove,theCityof EugenewouldhavetoÒoptoutÓofrecreationservicesiftheRiverRoadParksandRecreation Districtweretocontinueinanyformonceitsentireserviceterritorywasincorporatedintothe City. IftheCityweretooptoutofrecreationservices,theRiverRoadParksandRecreationDistrict couldtheoreticallycontractwiththeCityorexpanditsboundariestoservetheentireCity. Alternatively,andtechnicallyatleastsignificantlymorepossiblethanaRiverRoadÒtake-overÓ, theWillamalaneParksandRecreationDistrict(currentlytherecreationservicesproviderinthe CityofSpringfieldandpartsofLaneCounty)couldstepinbycontractoravoterapproved boundaryexpansion.ThescenarioofRiverRoadÒmorphingÓintoaregionalserviceprovideris RiverRoad/SantaClaraCommunityTransitionProject32 TransitionandHeritageWhitePaperMay2006 obviouslyveryremote,andevenaWillamalaneexpansionwouldentailconsiderableeffortand negotiation. ProvidesforaÒrecreation-centricÓregionalserviceprovider;resolvesallissuesof Advantages: residentandnon-residentaccesstofacilitiesandprograms;potentiallyfreesup Citytaxingauthorityforotherservices;taxingforrecreationonaregionalbasis maybemoreattractivetothevotersandmaybemorecostefficient RepresentsanalmostunimaginablechangefortheRiverRoadParksand Challenges: RecreationDistrict,andaconsiderablechangeforWillamalane;doesnothingfor theissuesoflocalcommunitygovernanceorheritage,andessentiallyacts countertotheseconcerns;localofficialsand/orvotersmaynotbesympatheticto creatingorexpandingaregionalrecreationservicesauthority Asdemonstratedbythe MiscellaneousOptionNo.2:CreateNewCommunityCenter(s)- functioningofRiverRoadÕsEmeraldParkcomplex,someformofcommunitycentermaybe importanttothesurvivalofasenseofdistinctÒplaceÓfortheSantaClaracommunity,especiallyin lightofthechallengesincreatingaSantaClara/BeltlineRoadneighborhoodcommercialnode (seefurtherdiscussionunderthechapterofthisWhitePaperentitledÒLandUsePlanningÓ). Theveryfactandfunctionofnewcommunitycenter(s)istheÒadvantageÓ. Advantages: Costofpurchasing,buildingorrehabilitatingacenter;costofoperatingacenter; Challenges: findingacenteroperator - MiscellaneousOptionNo.3:AlternativestoNewÒDedicatedÓCommunityCenter AlternativesthatcouldatleastÒbackfillÓsomeofthefunctionsofacommunitycentercouldbe spaceinlocalCityofficesorFireDistrictfirehalls,orlease(bytheCityorsomeotherentity)of commercialspaceinneighborhoodcommercialnodes.Thefiscalandoperationalviabilityof leasingcommercialspaceorconvertingsinglepurposepublicfacilitiescouldbeincreasedby aggregatingseveraldisparateactivitiesÐrecreation,volunteerlibrary,publicsafetystorefrontÐin asinglelocation. Theveryfactandfunctionofnewneighborhoodcommunitycenter(s)isthe Advantages: ÒadvantageÓ;leasingofcommercialfacilities(ormulti-useofpublicfacilities)may bealesscostintensiveandafasterwaytoestablishcommunitycentersthanvia astandalone,Cityownedfacility. Costofleasingorrehabilitatingacenter;costofoperatingacenter;findinga Challenges: centeroperator;feasibilityofusingcurrentsinglepurposepublicfacilitiesfor multi-purposes Asanapprovednew Ð MiscellaneousOptionNo.4:DesignationofParksCapitalFunding Citypolicy,aspartofanall-encompassingagreementwiththeRiverRoadParksandRecreation District,oraspartoftheimplementationofanotherheritageortransitionoptiondescribedherein, theCitycouldsetasidethedevelopment-generatedSystemDevelopmentCharges(SDC)funds collectedinRiverRoadand/orSantaClara,anddedicatesaidfundsexclusivelytocommunity recreationcapitalprojectsandlandacquisitions. Assureslocalparksfeesarespentlocally;potentiallyexpandsthecapacityof Advantages: boththeCityandParksDistricttoservethecommunitiesdirectly SDCÕsarecalculatedbasedonentireCityneedandallocationtothedistinct Challenges: communityareasmaybecontrarytooverallparkscapitalplans;segregationof parksfundinginthismannermaysetaprecedentthatothercommunitieswill wanttofollow;increaseincapitalfacilitiesmeansincreasingoperationalcostsfor whichtheremaynotbefunding;dependingonhowSDCandothercapitalfunds arecurrentlyallocated,acommunityÒearmarkingÓpolicycouldactuallyreduce fundingtoRiverRoadandSantaClara RiverRoad/SantaClaraCommunityTransitionProject33 TransitionandHeritageWhitePaperMay2006 WhatAnotherCommunityHasDone Thereareexamplesofparksdistrictsinotherregionsthatprovidein-cityparksservices.Forinstance,the providesallparksandrecreationserviceswithintheCityof TualatinHillsParksandRecreationDistrict Beaverton,Oregon.Closertohome,theDistrictprovidessimilar WillamalaneParksandRecreation servicetotheCityofSpringfield.Boththesedistrictsserveareaslargerthanjustthesecities,however, andcurrentStatestatutedoesnotallowforspecialservicedistrictstooperatewithinfullyincorporated cityterritoryifthecityandthedistrictprovidethesameservice. RiverRoad/SantaClaraCommunityTransitionProject34 TransitionandHeritageWhitePaperMay2006 Streets CurrentSituation Informationreviewedconcerningcommunitydesireswithrespecttostreetsandtransportation(suchas the2002RiverRoad/SantaClaraUrbanServicesCommitteeReport)indicatesthatpreservationofrural streetscapesinthefaceofurbanizationissecondperhapsonlytoparksandopenspaceasatransition issueimpactingthetwocommunities.ThechallengeinRiverRoadandSantaClaraistoassurepublic safetyandavoidproblemsastrafficvolumesgrowth,whilesustainingphysicalelementsofthecommunity heritage,suchasoldertreedstreetsections. Safetyandtrafficflowsareobviouslyparamountconcerns,butothervaluescanbegivensignificant consideration.TheCityisreasonablycompelledtorequirefullimprovementsatthetimeof redevelopmentorredevelopment,simplybecauseanadjacentnewhousingprojectcanberequiredto makesuchupgradesaspartofanoveralldevelopmentapproval,orfortrafficorsafetyconsiderations Nonetheless,giventhat(atleastwithlocalstreets)theissueofruralvs.suburbanstandardswilloftenbe moststronglyfeltinolderdevelopedneighborhoods,theremaybeopportunitiesfortheCitytofacilitate thepreservationofÒheritageÓstreetscapesbybalancingcommunityneedswithCity-widestandards. ThesurfacestreettransportationsystemsinbothcommunitiesincludeCountyandCityjurisdictionroads. CountyandCitybuiltroadwaysdiffersomewhatinappearance,bothbecausesomeCountyroadsare olderandreflectthestandardsofthepast,andbecausestandardsarenotnecessarilyconsistent betweenthetwojurisdictions.Morerecentlyconstructedroadsexhibitcommonstandardsirrespectiveof jurisdiction,astheCityhasexercisedfunctionaltransportationplanningauthorityforRiverRoadand SantaClarafornearly20yearsbyintergovernmentalagreementwithLaneCounty. TheCityandCountyhavedevelopedaseriesofotheragreementsforcoordinatingstreetmaintenance andimprovementsinRiverRoadandSantaClara,andinotherareaswithintheUrbanGrowthBoundary (UGB).MaintenanceagreementsspecifyindividualstreetsasaCityorCountyresponsibilityirrespective oflegaljurisdiction.Themostcurrentagreementsidentifyandassignresponsibilityforalonglistof specificstreetsintheSantaClaraandRiverRoadneighborhoods.TheCityandCountyalsoenterinto agreementstofundandconstructupgradestoroadsinÒmixedÓjurisdictionareas. Therearesomedistinctionsthatcanbemadebetweenthetwocommunitieswhenitcomestostreets, primarilybasedonthepatternofolderdevelopmentandtheopportunityfornewormorerecent development.Thesearedescribedbelow. Forthepurposesofdiscussingtransitionandheritageoptions . addressingstreets,however,thetwocommunitieswillbetreatedhereintogether Withthecautionthatthesearegeneralizeddescriptionswithmanyexceptions,thepattern(andattendant implications)ofcommunitystreetpatterns,couldbedescribedasfollows: RiverRoad RiverRoad,particularlysouthofHornStreet,ischaracterizedbylongeast-westblocks.BetweenHorn andHowardStreet,therearemanylongnorth-southblocksandsomelonglocalstreetsthatsimplydead- end.ThesestreetpatternswouldÒdateÓtheareaasolderthanotherpartsofthecommunity. RiverRoadnorthofHowardtoBeltlineRoadexhibitsasubdivisionandlocalstreetpatternthatlooks moretypicallycontemporaryandurbanthanareassouthofHoward(e.g.blocksareshorter,thereismore regularpatternofconnectivitybetweenstreets,etc.),althoughthepatternisstillverygrid-like.A subdivisiontothewestofBramblewoodParkisanexceptiontothischaracterization,exhibitingamixof cul-de-sacandcurvilinearstreetsthatindicateamorerecentsubdivision. ThereappearstobeonlyacoupleoftractsleftintheRiverRoadcommunitythatcouldaccommodate substantialnewresidentialdevelopment,thereforemostopportunitiestoupgradestreetsthrough RiverRoad/SantaClaraCommunityTransitionProject35 TransitionandHeritageWhitePaperMay2006 developmentprocesseswillbelimitedtosinglelot,in-fill,orsmalltractprojects(orthroughCity/County specialassessmentprocesses). SantaClara ThepatternoflocalstreetsintheSantaClaracommunityisgenerallymoreuniformthanwithRiverRoad. Asageneralcharacterization,localstreetsinthemoresoutherlypartsofSantaClaralookmuchlikelocal streetsbetweenHowardandBeltline.StreetsgraduallybecomemorecurvilinearandÒcontemporaryÓ (e.g.:morecul-de-sacsandgrid-likewithfewerperfectlyrectangular,2:1ratiolots)thefurthernorthone goesinSantaClara.Thereisalsoahighcoincidencebetweenthesemorecontemporarysubdivisions andincorporationintotheCity.WhilethereappeartobemoreundevelopedtractsinSantaClarathanin RiverRoad,theneighborhoodisstillrelativelyclosetobuild-out,atleastbasedontheparameterof plattedlots.Generally,thecontrastingpatternofdevelopmentbetweenthetwocommunitiesmayhave thepracticalimplicationofmakingpreservationoflocalstreetscapesmoreofanissueinRiverRoadthan inSantaClara,inthesensethatthereappearstobeagreaternumberofÒruralÓlocalstreetsectionsleft intheRiverRoadcommunity. TransitionandHeritageOptions TransitionOptions OtherthancontinuingtosustainthecurrentcooperativeeffortsbetweentheCityandLaneCountywith respecttoroadjurisdiction,maintenance,andimprovements,therearenoÒtransitionÓoptionsinSanta ClaraandRiverRoadassuch.Potentialstandardsandprogramsbelowalladdressheritageoptions (e.g.:thosethatwillhelptosustainaspectsofthecommunityÕshistoricruralcharacter). HeritageOptions Whenexistingolderstreetsareupgraded,theCity OptionNo.1:StreetTreePreservation- coulddevelopasuiteofoptionsthathelptopreservestreettreesandvistas.Theseoptionscan applytoarterialsandcollectorsaswellaslocalstreets.Suchaccommodationscouldinclude offsettingstreetsectionswithintheright-of-way,reducinglanewidth,eliminatingorreducing sidewalksononeorbothsides,orbuildingthestreetsectioncloserthannormallypermittedto existingdevelopmentsiftheexpectedlifespanofthetreesisgreaterthanthatoftheexisting development(e.g.:whentheolderstructuresarereplaced,preferredsetbackscanbere- establishedbutthelonger-livedtreeswillstillbethere). Preservesaverysignificantstreetscapeelement;addressesaspecificand Advantages: significantissueofconcernformanycommunityresidents;theCityCodealready includesprovisionsfordesignatingandpreservingÒheritageÓtrees Availableright-of-wayandageand/orlocationofabuttingdevelopmentmay Challenges: makesuchaccommodationsdifficult;couldinvolvesignificantvariancefromCity standards;probablyneedstobeimplementedasaCity-wideoption .Ifresidentsonlocal(andperhapsminorcollector) OptionNo2:LeaveLocalStreetsÒAs-isÓ- streetsexpressaclearpreferenceforopenditchdrainage,nosidewalks,narrowersections and/orotherÒhistoricÓcharacteristicsofthestreet,theCitycouldletmattersremainÒas-isÓ.This couldberelativelystraightforwardactionwherelotsabuttingaresidentialstreetareessentially built-out.Insuchcases,theCitywouldsimplybecontinuingthestatusquo.Inothercases,where continuedinfillorredevelopmentincreasesdensities,surfacewaterflows,ortrafficlevels, conventionalupgradestandards(andconnectivityrequirements)couldbetriggeredwhenpre- determinedthresholdsarereached. Presently,theCityÕsbacklogwithrespecttopavingunimprovedstreetsandreplacingworn infrastructureonotherlocalstreetsissogreatthatÒas-isÓisineffecttheCityoperationalpolicy. Localstreetsaretypicallyonlyupgradedinresponsetoresidentdemand. RiverRoad/SantaClaraCommunityTransitionProject36 TransitionandHeritageWhitePaperMay2006 Preservesexistinglocalstreetscapes;Cityisprobablyunlikelytoimprovelocal Advantages: streetswithoutsubstantialpressurefromresidents;eliminatesanysense(or reality)ofdislocationamongcurrentresidentstotheextentthatimprovements maynarrowfrontyards,cutdowntrees,increasetrafficandattendantnoise; narrower(presumably)pavedstreetsectionscandetertrafficspeedsandÒshort- cutÓtraffic;theCitybackloginimprovinglocalstreetsissogreatthatÒas-isÓisin effectthede-factooperationalpolicy. Mayperpetuatesafety,drainageorotherproblemsassociatedwiththeolder Challenges: streetsection(ifsuchproblemsinfactexist);retainingolderstreetsectionsmay requireincreasedmaintenancecosts Whenexistinglocal(andperhapsminorcollector) OptionNo.3:LocalStreetTransitions- streetsareextendedbynewdevelopment,theCitycouldconsiderutilizingtheimprovementlevel oftheoldersection(oradoptingsomemiddlegroundsuchamatchedstreetwidths,eliminating sidewalks,etc.)inbuildingthenewextensions.Thisapproachshould,however,beappropriately mitigatedwherethestreetisorbecomesanaccesstoamajoractivitycentersuchasaschoolor park.Citystreetstandardsarecurrentlybeingreassessedwithrespecttonarrowerstreet sections,curb-lessstreets,andavarietyofotherÒminimumÓdesignparameters.Ifappliedtolocal andcollectorstreetsinRiverRoadandSantaClara,thesenewstandardscouldhelpaddress streettransitionandupgradeconcerns/ Betterpreservesexistinglocalstreetscapes;providesforuniformityalong Advantages: individualstreets(e.g.:avoidshavingimprovementstransitionbackandforthto differingstandards);Citystreetstandardsarecurrentlybeingmodifiedtopermit narrowerstreetsandotheroptionsthatmayhelptopreservelocalcharacter. Residentsofnewersectionsmayprefertohaveurbanlevelstreetimprovements; Challenges: opportunityfortheCitytoobtainfullstandardstreetsthroughdevelopment dedicationsmaybelost;maynotbedesirablewheretheextensionmeansthe streetbecomesanaccesstoasignificanttrafficgenerator Manylong-timeneighborhoodresidentsliketheirlongdead-ended OptionNo.4:ConnectivityÐ olderstreets.Absentsomeover-ridingandsignificantpublicsafetyoraccessconcern,theCity couldmoderateitsrequirementsforconnectivityinassociationwithdeferringupgradesoflocal streetsections(seeoptionsabove).Asamiddleground,theCitycouldperhapsacquireright-of- wayconnectionswithoutbuildingtheactualconnection,and/orinitiallylimitconnectivityto pedestriansidewalksand/orbikelanes. Preservesexistinglocalstreetscapes;limitsanysense(orreality)ofdislocation Advantages: amongcurrentresidentstotheextentthatimprovedconnectionsmayincrease trafficandattendantnoise;right-of-wayacquisitionpreservesoptionsforphysical connectionsinthefuture;whenassociatedwithbikeandpedestrianconnectivity mayreducesomevehicletrips DeferringconnectivityiscontrarytooneofthegoalsofconnectivityÐreducing Challenges: dependenceonandlengthofvehicletrips;opportunityfortheCitytoobtainfull standardstreetsthroughdevelopmentdedicationsmaybelost;theState TransportationRulemakesconnectivityandtheprovisionofnon-vehicular alternatives(suchaspathwaysandbikeways)amongthekeyconsiderationsin transportationplanningandimprovements. Avarietyofeffectiveandprovenimprovementsareavailableto OptionNo.5:TrafficCalming- slowtrafficanddeterÒshort-cuttingÓofthroughtrafficintolocalresidentialneighborhoods.Such trafficcalmingmeasurescangoalongwaytopreservingtheÒfeelÓofalocalstreet,evenasthe communitygrowsandtrafficincreasesaroundtheneighborhood.TheseÒcalmingÓimprovements includespeedhumps,trafficcircles,medianislands,narrowedpedestriancrossings,etc. RiverRoad/SantaClaraCommunityTransitionProject37 TransitionandHeritageWhitePaperMay2006 AlreadyaCityprogram;mayhelpmitigateimpactsofdecisionstoupgrade Advantages: and/orconnectstreets;avoidstoagreatextentanypolicyanduniformityissues associatedwithvaryingstandardsforindividualneighborhoods;trafficcalming improvements-besidesthesafetybenefitsÐcanbeusedtohelpconnect neighborhoodsacrossbusystreets Suchimprovementscanberelativelyexpensive;someviewsuchimprovements Challenges: asannoyingtodangeroustosimplytoocostlyrelativetothebenefit Inadditiontoapplyingsomeoralloftheideas OptionNo.6:ArterialandCollectorUpgrades- above,theCitymightconsiderdeferringcompleteurbanstreetupgradestohighertrafficvolume thresholdsthanpresentlyapplied. (Note:thetermÒthresholdÓisusedgenerically.TheCitydoes nothaveastreetupgradepolicytriggeredbymeasuredlevelsofservice) Preservesexistingstreetscapes;defershighcostsassociatedwitharterialor Advantages: collectorupgrades Safety,maintenanceandtrafficvolumeissuesforstreetsfunctioningasarterials Challenges: orcollectorswithoutthephysicalcapacitytodosoproperly;highervolume thresholdsmaybereachedatajuncturewherefinancingorprioritiesforsuch improvementsarelow;asarterialsandcollectorsservelargerÒconstituenciesÓ thanjusttheneighborhoodstheypassthrough,notallusersmaybesympathetic toÒheritageÓconsiderations WhatAnotherCommunityHasDone isitsownbestexampleforsomeofoptionsoutlinedabove.TheCityalreadyhasa TheCityofEugene trafficcalmingprogramunderway.TheCityhasalsobeenexaminingÒContextSensitiveDesignÓ StandardsforatleastoneEugeneneighborhood(CrestDrive).Theideaspresentedabovearesimply somepotentialelementsofaÒcontextsensitiveÓreconsiderationofthestreetstandardsappliedtothe SantaClaraandRiverRoadcommunities. hasalongstandingstreettreepreservationpolicythathasbeenappliedto TheCityofWilsonville,Oregon alllevelsofstreetclassifications.Connectivitycanbedeferred,sidewalkseliminated,building-to-curb setbacksreduced,streetsectionsshiftedwithintheright-of-way,andevenrights-of-wayreducedorre- routed.Thethresholdinthedeclineinlevelofservicethatwarrantsstreetupgradesarealsosethigherin Wilsonvillethaninsomeothercommunities.Thispolicyisalsoappliedtopreservewetlandsandother sensitivelandsinWilsonvillethatareimpactedbystreetextensionsorupgrades.TheCityofWilsonville alsowaivesselectedstreetstandardsinolderneighborhoodsinfavorofpreservationofthehistoric characterofsuchareas.ThesepolicieshavebeenappliedtoallstreetclassificationsÐarterials, collectorsandlocalstreets RiverRoad/SantaClaraCommunityTransitionProject38 TransitionandHeritageWhitePaperMay2006 SurfaceWaterManagement CurrentSituation TheCityandLaneCountysharesurfacewatermanagementresponsibilitiesintheRiverRoadandSanta Claracommunities,andareundertakingajointsurfacewatermasterplanforthetwoareas.Reviewed materials(suchasthe2002UrbanServicesReport)donÕtidentifyanymajorsurfacewater perceived issuesintheneighborhoods,althoughthiscouldchangeasadditionalsubdivisionandinfilloccursand olderpropertiesredevelopwithmoreimpermeablesurfaces(orwhenamajorstormeventorparticularly wetwinterseasoncausessignificantfloodinganddrainageproblems).Thoseconcernsthatare expressedinthe2002CommitteeReportprimarilyspeaktostormwaterquantityandlocalizedflooding issuessuchas: Yarddebrisremovalandillegaldumping(presumablywithrespecttotheimpactonlocalized floodingfromcloggedcatchbasins) Destructionandalterationofnaturaldrainagechannelsandstreams. Needforbetterplanningandregulationofbuildinganddevelopmentpracticesthatimpact drainage. Waterqualityissuesaresimplynotmentionedinthe2002UrbanServicesReport.Furtherexaminationor eventscouldrevealmoreuniversalconcerns,assurfacewatermanagementhasbecomeamajordriver ofcommunityplanninginotherOregoncommunities(aswellasotherpartsofEugene). Cityofficialshaveidentifiedarangeofsurfacewatermanagementissuesthatpastandpresent circumstancesmaynotasyethavebeenÒbroughttotheforeÓinthemindsofcommunityresidents. Theseinclude: Thenumberofdrywellsinthetwocommunitiesthatmaynotcomplywithcurrentenvironmental regulations Lackofanapprovedbasinandsurfacewatermasterplan(s)andregulationsforthetwo communities(theCityandCountyhavesuchplansandregulationsindevelopment) LackofwaterqualityprotectionsandFederalCleanWaterActstandardsforlocalwaterways (theseeffortsarealsounderwaybytheCityandCounty) Concernsovertheabilityofruralsurfacewatersystemstohandleurbanflowsaremanyandlegitimate, althoughpublicagenciesandprivateengineershaveoverthelast15yearsbeendevelopingmany ÒgreenfrastructureÓsolutionstobothsurfacewaterqualityandquantityconcerns. CleanWaterServices (formerlytheUnifiedSewerageAgencyofWashingtonCounty)anditspartnercities,and PortlandÕs ,havepioneeredmanyinnovativeandeffectivetechniques,someof BureauofEnvironmentalServices whichhavethesideÒbenefitÓofpreservingmoreÒruraltypeÓlandscapesandstreetscapes.Although thesesolutionsworkbestwhenundertakeninacomprehensivemanner(e.g.:ÒridgetoptostreambedÓ solutionsthatincludesitedesign,downspoutdisconnects,eco-roofs,vegetativecover,ÒgreenstreetsÓ, sensitivelandspreservation,surfacepermeabilitylimitations,andmore),individualsurfacewatersystem components(forinstance,bio-swales)dohavestrongattributeswhenappliedinsituationsthatbest supporttheireffectiveness. TransitionandHeritageOptions SurfacewatermanagementappearstohavefewdistincttransitionorheritageimpactsforRiverRoadand SantaClara,fortheimpactsofvariousroaddrainageoptionsonexistingstreetscapesand/orthe except benefitsofpreservingnatural,drainageandstreamcorridorsforbothopenspaceandsurfacewater managementbenefits.Thesebenefits,especiallywhencombinedwithotherpotentialcommunity strategies,suchacontextsensitivestreetdesignandopenspacepreservation,canbesignificant.These RiverRoad/SantaClaraCommunityTransitionProject39 TransitionandHeritageWhitePaperMay2006 arediscussedbrieflybelowandreiteratedinspecificoptionsdiscussedundertheÒPlanningÓ,ÒStreetsÓ, andÒParksandOpenSpaceÓchaptersofthisWhitePaper -IntheRiverRoadandSantaClaracommunities,ÒgreenfrastructureÓ OptionNo.1:StreetDrainage surfacewatermanagementsolutionscanÒbackstopÓsomeoftheruralstreetscapepreservationideas discussedelsewhereinthisWhitePaper.Oneoptionisretentionofopendrainageditches-re-constituted asbio-swales-thatprovideformanywaterqualityandquantitybenefitsthatarelostorthathavetobe engineeredinconventionalpipedsolutionstostormwaterrun-off.Adoptionofsuchstandardswould complimentanychangesinstreetsectionstandardsthatpreserveruralstreetappearance. -AnotheriterationofÒgreenfrastructureÓ OptionNo.2:IntegrationwithOpenSpacePreservation solutionsapproachesistoincorporatewaterquality/quantitytreatmentorretentionpondsdirectlyinto openspaceandparkfacilities,helpingtocontrolwaterflowsandqualitywhilealsoprovidinganopen spaceandvisualamenity.Thepreservationandrestorationofstreamsandothernaturalwaterfeatures, riparianzones,wetlands,100-yearfloodplain,andnaturaldrainagesystemsalsocanmakesignificant contributionstowaterqualityandfloodmanagementwithoutresortingtoÒengineeredÓsolutions. RiverRoad/SantaClaraCommunityTransitionProject40 TransitionandHeritageWhitePaperMay2006 OTHERSERVICES TwootherserviceswereincludedinRiverRoadandSantaClaraUrbanServicesCommitteeReport publishedin2002-publicsafetyandwatersupply.Sanitarysewerservicewasnotdiscussedasa separatetopicinthe2002CommitteeReport,althoughtheÒforcedÓseweringofbothcommunitiesinthe late1980Õsappearstobeanadirinneighborhood/Cityrelationsinthemindsofmanylong-termresidents. Sewerserviceasatransitionorheritageissueappearstobemootatthispointandwillnotbe furtherdiscussedinthecontextofthetransitionorheritageoptionsoutlinedinthisWhitePaper. Inaddition,theimpactsofdifferencesinCountyandCitystandardsandratesforsolidwastecollection andcurb-siderecyclingwasraisedbytheCityin2005. Basedontheabovereferenced2002CommitteeReportandotherdocumentsreviewed,theleveland qualityofpolice,solidwasteandwatersupplyservicesseemtobegenerallysatisfactory(oratleast acceptable)tothetwocommunities.Itshouldbenoted,however,thatsomeCityandCountyofficials considerthatpublicsafetyservicesaremoreproblematicthantheÒaverageÓcommunityresidentmay perceive.Theseissuesaresummarizedbelow. Nonetheless,basedondocumentedperceptionswithinthetwocommunities,fewtransitionissuesand evenfewerheritageopportunitiesattachthemselvestothreeoftheabovereferencedservices(sanitary sewerisexcluded).Therefore,thischapterdepartsfromthestandardWhitePaperformat,andonly brieflydiscussesoneortwoissuesandideasforeachservice. PublicSafety Areviewofdocumentsevaluatingcommunityneedsandperceptionsindicatesthatpublicsafetyservices aregenerallynotanoverarchingissueofconcerninRiverRoadorSantaClara.Thisnotwithstanding, LaneCountyofficialsdoperceiveseriouspublicsafetyserviceissuescounty-wide,andhavediscussed publicsafetyserviceproposalsinresponse.Inearly2005,LaneCountyconsideredsponsoringaballot measurethatwouldformaPublicSafetyspecialservicedistrict.Approvalandimplementationofsucha measurecouldshifttheequationwithrespecttoCountyresourcesavailabletoSantaClaraandRiver Road,althoughasaCounty-widemeasurethespecialservicedistrictwouldnotnecessarilyhavemore impactonRiverRoadorSantaClarathananyotherpartoftheCounty.Thisnotwithstanding,theCounty appearsasofwritingnottobeproceedingwiththisinitiative. BothSantaClaraandRiverRoadbenefitfromthepresenceofCity,Countyand/orStatelawenforcement basedonmunicipalboundaries,roadjurisdictions,inter-agencyagreements,andÒundocumentedÓ practice.TheÒgerrymanderedÓpatternofCityandCountyjurisdictioninboththeRiverRoadandSanta Claracommunitiescan,however,makeitparticularlychallengingforlocallawenforcementagenciesto distinguishbetweentheirowncitizensandotherresidents(althoughtheonsetofin-patrolcarcomputers andothertechnologyhasmadethisasimplermatterthaninthepast).Itisnotunknowninareas transitioningfromonejurisdictiontoanotherthatthelawenforcementagencymostproximatetothe publicsafetyincidentwillrespond(particularlytoemergencyormajorcrimeincidents)simplybecause publicsafetyagenciesoftenseeitintheinterestofoveralllocalpublicsafetytorespondtocallsand crimesinthecommunityirrespectiveofjurisdictionalstatus. Thesearereasonablycommonissuesinurban/ruraltransitionsthroughoutOregonandelsewhere,and thecomplicationsaresometimesmitigatedbyonelawenforcementagency(typicallythecountysheriff) ÒwithdrawingÓfromtheirjurisdictionalterritoryinfavorofamoreproximatecitypolicedepartment.Such withdrawalsarenotnecessarilymemorializedbyintergovernmentalagreement. Alternatively,someCountysheriffsofficeshavedeveloped(andtaxedfor)ÒenhancedpatrolÓ servicesonin-countylandsimmediatelyadjacenttocitiesthatbegintotakeonurban characteristicsasaresultofpopulationgrowth. RiverRoad/SantaClaraCommunityTransitionProject41 TransitionandHeritageWhitePaperMay2006 AlthoughthemoreÒinformalÓwithdrawaloptiondescribedaboveworksinmanyÒtransitioningÓ communities,itdoesraiseissuesoftaxequityandcanmeanthatlesssignificantcrimesand misdemeanorsdonÕtgetthefullattentionofpublicsafetyservices.Shortofanenhancedpatroloptionor publicsafetydistrictsolution,whereasinglelawenforcementagencyprovidesfullservicetoallresidents andbusinesses,thegerrymanderednatureoftheSantaClaraandRiverRoadcommunitiesmaywork againstÒrationalizingÓpoliceservicesuntilsuchtimeastheentireareaisincorporated.Thenagain,the currentarrangementsdonotseemtobeexcessivelyproblematicunderpresentcircumstances. SolidWaste SolidwastecollectionandrecyclingwasanissuenotaddressedintheUrbanServicesCommitteeÕs2002 Report.Inearly2005,Cityofficialsexpressedaconcernoveraperceivedserviceandrateinequity betweenin-Cityandnon-CitysolidwastecollectioncustomersinRiverRoadandSantaClara.Typicallyin many,ifnotmost,othercommunities(atleastinOregon)thelocalgovernmentfranchisesoutsolidwaste collection,curb-siderecyclingandyarddebrispick-uptoprivatehaulers.Ratesandservicelevelsare establishedbymulti-yearfranchiseagreements.Totheextentthatrateandservicedifferencesbetween CityandCountyresidentsandbusinessesinRiverRoadandSantaClaraisaproblem, an intergovernmentalagreementforsolidwastehaulerswherebytheCityÕsandCountyÕsfranchise termsÐservicestandards,servicesoffered,rates,etc.-aremadeidenticalmayresolvetheissue. WaterSupply TheRiverRoadandSantaClaraWaterDistrictsprovideforÒretailÓwatersupplydeliveryandwater systemmaintenancefornon-Citypropertiesinthesetwoneighborhoods.Thetwowaterdistrictsarealso responsibleformaintainingandreplacinglocalwatertransmissioninfrastructure.TheEugeneWaterand ElectricBoard(EWEB)providesservicetoCityresidents(bothdirectlyandthroughthetwolocalwater districts),andalsoÒwholesalesÓwatersupplytothetwolocalwaterdistrictsfordeliverytonon-City properties. Thenature,regulationandcomplexityofcontemporarywatersupplysystemsaresuchthatthecurrent systemofdirectprovisionorÒwholesaleÓdeliverythroughEWEBisreallytheonlyviableapproach.In fact, withtheonlyremainingfunctionsofthetwowaterdistrictsbeingÒpass-throughÓwater retailersandprovidingformaintenanceofthelocaldeliverysystem,thereislittlesubstantial benefitlefttosustainingtheseDistricts,absentsomebenefitasalocallygovernedinstitutionthat Practicallyspeaking,however,suchsmalldistrictshavelittle hassomemeasureofcontroloverrates. ornoleverageindictatingratesorsupplyinawaythatwouldappreciablybenefittheirlocalcustomers. Thesameappliestotheroleofthetwowaterdistrictsinmaintainingandimprovingtransmission infrastructure.Again,thisfunctionmayhavesomelocalcontrolbenefits,butpracticallyspeakingsuch smallwaterdistrictsmaybeseverelyrestrainedfiscallyintheirabilitytomakemajorcapitalimprovements ontheirown. ForRiverRoadÕsnon-Cityresidents,perhapsthemostimportantÒtransitionÓbenefitoftheRiver RoadWaterDistrictisintheDistrictÕsroleasthecontractorwiththeCityforCityfireprotection AbsenttheWaterDistrictÕsintergovernmentalcontractingauthority,oranexpansionofa services. neighboringruralfireprotectiondistrict,partsofRiverRoadcouldbetheoreticallybeunprotectedwith respecttofiresuppression.TheonlyotherRiverRoadcommunityinstitutionthatcouldtakethisroleon (eventheoretically)istheRiverRoadParksandRecreationDistrict,whichisaveryunlikelychoice. RiverRoad/SantaClaraCommunityTransitionProject42 TransitionandHeritageWhitePaperMay2006 Date:January19,2006 To:RiverRoad/SantaClaraTransitionTaskForce From:JimRapp Via:DavidReed,TransitionTeamProjectManager RE:OUTCOMESofMEETINGSwithRR/SCSERVICEPROVIDERS AttachedarethetranscribednotesthatDavidReedandItookinthecourseofmeetingswiththe twoFireDistricts,theRiverRoadParksDistrict,andtwomeetingswiththeCityÐthefirstwith seniordepartmentstaffandthesecondwithCitydepartmentheads.Everyonewasprovidedwith theNovember25,2005versionofthedraftStrategicFrameworktemplatedevelopedbytheTask Force;andtheNovember24versionofthecompleteWhitePaper.Ialsoproduced(asperRob HandyÕssuggestion)anÒintermediateÓdocumentwiththecompletetextofspecificWhitePaper optionspastedinnexttotheFrameworkstrategiesandactions.Weallthoughtthiswouldhelpto gettheserviceprovidersbetterandmorequicklygetoriented,butinpracticeitprovedtobetoo muchpaper!InthefutureIsuggestwithstickwithjusttheWhitePaperFramework(withoption andpagenumbercross-referencesbacktotheWhitePaper). Themeetingswerequiteusefulandinformative,andthetonewasgenerallyverypositive,although thereweresomeconcernsexpressed(ascanbeseenbythenotes),andofcoursethefireandparks districtsareallsufferingfromvaryingdegreesofdifficultfinancialstress.Inacoupleofcases,the inputoftheserviceprovidershadsomedirectandveryfocusedimplicationsforthecurrent InstitutionalstrategiesandoptionsintheFramework,andonegovernanceissue,andIpointout thesebelow.ThisisnottosaythattherewerenÕtotherconcernedexpressedwithotherstrategies andoptions,thesefewweresimplythemostfocused.Itwasalsoencouragingtohearthepositive commentsbyboththeCityManagerandAssistantCityManager FIREDISTRICTSÐ ThetwoFireDistricthadnointerestinaconsolidation,andtheirreasons wereidenticaland(inmyassessment)quitevalid.CityFirebackedupthelocalperspectiveonthis issue.ThetwoDistrictsalsofeltthatboundaryadjustments,servicecontracts,etc.wouldnotsolve theessentialproblem,andsimplywerenÕtpracticaloreffectiveoptions.Incontrast,theneedforand willingnesstositdownimmediatelyandworkoutafireservicetransitionplanwaswellreceivedby allparties. TheCityÕsfirechiefalsoheldoutsomehopethatcurrentimpediments(e.g.:unioncontract)to transferofdistrictvolunteerbrigadestotheCityservicecouldberesolved Accordingly,IthinkthatInstitutionalStrategy#5,ÒSupportandSustainFireService VolunteerInstitutionsÓhassomerealpotential.ForInstitutionalStrategy#7,theinputofall threeservicesprovidersindicatesthattheTaskForcemightwanttodroptheSECOND bulletedactionunderthatstrategy--Òconsiderpossibleserviceconsolidationsand/or contractsÓ. PARKSDISTRICT ÐWhiledevelopingtheFramework,theTaskForcedecidedtosplitthe InstitutionalStrategyrelatingtotheRiverRoadParksandRecreationDistrictintotwopartsÐone ÒsustainÓandotherÒexpandÓ.BasedondiscussionswiththeParksDistrict,Ithinkthewordingof thesetwocomplimentarystrategiesholdup. However,astheParksDistrictsseesÒexpandingÓrecreationservicesintoSantaClaraby contractessentiallyasawaytopreserveandsustaintheircurrentbaseofSantaClara customers,theTaskForcemaywishtoconsiderrecombiningthesetwoFramework StrategiesbackintoasingleÒsustainÓoption. CityBoardsandCommissions ÐTheFrameworkimplementationstrategytoÒdesignatenon-City seatsonallCityboardsandcommissionsÓwascounteredwithÒCityordinancesalreadypermitnon- CitymembersonallCityboardsandcommissionexceptfortheBudgetCommittee,andwewould welcomemorenon-CityapplicantsaswearealwayschallengedinfillingthesecommitteesÓ.As reflectedinthemeetingnotes,CitystaffwasnÕttooÒhighÓontheideaofanon-Cityseatonthe Council,butasthisisessentiallyapoliticaldecision,Iseenoreasontodropthisideafromthe Frameworkatthispoint. TheTaskForcemay,however,wishtodroptheÒdesignatedBoardandcommissionseatsÓ option,orsubstitutethesuggestionthatwasmadetoempowerthetwoCommunity Organizationstoadoptandpromotesomesortofformalneighborhoodnominationprocess forCityboardsandcommissions InterviewswithRiverRoad/SantaClaraServiceProvidersre: RiverRoad/SantaClaraTransitionandHeritageStrategyFramework ConductedbyDavidReedandJimRapp December12and13,2005;andJanuary2,2006 NotesbyJimRappandDavidReed (RRPRD) RiverRoadParksandRecreationDistrict CommentsandObservationsbyJimLockardandDaleWeigandt FeelthattheRRPRDcouldoperatewithinaCitystructure,althoughatpresenttheRR PRDcanoperatecheaperthantheCityforequivalentlevelofservice RRPRDisalreadyineffectservingRiverRoadandSantaClara,soaformalSERVICE expansionwouldnotbeabigchange.RRPRDestimatesthatupto50%oftheirpatronage forrecreationprogramsisfromSantaClara.ABOUNDARYexpansionwouldbemore problematicandactuallylesseffectivegiventheamountofannexationtoEugeneinSanta Clara.RRPRDdoesnÕtseeaboundaryexpansionaspossible,butisverywillingtoserve SantaClarathrucontractwithEugene IfEugeneweretoaggressivelybuildrecreationfacilitiesandproviderecreationservicesin SantaClara,theprobabledeclineinSantaClarapatronageofRRPRDprogramscouldÒtipÓ thefinancialbalancefortheDistrict RRPRDwouldbewillingandabletoprovideforrecreationservicesinSantaClaraunder contractwiththeEugene,providedtheCityacceptedresponsibilityforfacilitiesandparks. ServiceProviderInterviewNotes2 RR/SCHeritageFrameworkDecember2005/January2006 RRPRDcouldneveraffordtobuildtherecreationfacilitiesneededinSantaClara.RRPRD wouldleasefacilitiesandworkwithschoolstoprovidespacesforrecreationservices. RRPRDwouldnÕtseeacontractwithEugeneasanexpansionasmuchasawaytosustain theDistrict.AcontractwithEugenewouldsustaintheircurrentSantaClaracustomerbase. RRPRDdoesnÕtseehowconvertingtheDistricttoanon-profitwouldbeeffective(this ideahadbeenpreviouslysuggestedbyEugeneÕsAssistantCityManager).Convertingtoa non-governmentalorganization(NGO)wouldmeanthatRRPRDwouldlosetheirtaxbase andtheEugenesupportpaymentstothenewNGOwouldalsobeproblematic(e.g.:no longeragovernmenttogovernmenttransfer).PERHAPSconversiontoanNGOwould workatthepointthattaxrevenuesandCitytransferpaymentsnolongeraresufficient,along withprogramfees,tokeeptheDistrictoperating EugeneÕstransferpaymentstoRRPRDareessentialbutneedtobeindexedto inflation/costofserviceandtheshrinkageintheRRPRDtaxbaseasannexationprogresses. Thecurrentformuladoesnotprovideforthis.RRPRDwouldalsoseekanadjustmentto theformulaforcostsofformallyexpandingrecreationservicestoSantaClara(suchasnew staff) AcontractbetweenRRPRDandEugeneforrecreationservicesinSantaClarawould ÒrespectÓexistingusagepatternsandrecognizetheproximityofthetwoneighborhoods.RR PRDisnotjustÒopenÓtosuchacontract;theywouldPREFERsuchacontract. (SCFire) SantaClaraRuralFireProtectionDistrict CommentsandObservationsbyFireChiefSkipSmith SCFireagreeswithLaneFireÕsassessmentthatamergerofthetwofiredistrictswouldin effectrequireincreasestaxesincreases,asmostSCFirepropertiesarelowertaxproducing residentialpropertieswithhigherfireservicecosts.SCFiredoesnotconsideramerger feasibleundersuchcircumstances. EugeneÕsAssistantCityManagerhassuggestedaboundarychangewherebyallofLane FireÕsserviceterritorywithintheSantaClaraneighborhoodboundaryistransferredtoSC Fire.SCFirefeelsthismighthelpwithDistrictfinancesintheshort-termbutinthelong- termtheproblemisthesameÐterritorywillcontinuetoannextoEugenetotheeventual pointthatSCFirecannolongerfinanciallysustainitselfwithtaxrevenues. SCFireisnowoperatingwithadeficitbudgetandbackfillingtaxrevenuesshortfallswith reserves.SCFireonlyhasaÒfutureÓifannexationstopsANDtheCityagaincontractswith Districtforfireservicetoin-Cityproperties. SCFireneedstoknowwhatisgoingon(andsoon)withCityandneighborhoodplanssoas tobeabletoplanforthefuture.SCFirewouldwelcomethedevelopmentofatime-certain transitionagreementandassetstransferplanwithEugene,LaneFire,andtheSantaClara District(waterdistrictisincludedanticipatingasimilarpass-throughcontractastheone EugenehaswiththeRiverRoadWaterDistrictforprovidingCityfireprotectiontonon- CitypropertiesinRiverRoad) AsSCFireisnon-uniontherewouldbenoissues(astheremightbewithunionizedEugene andLaneFire)withtransferringorchangingtheDistrictÕsvolunteerfirebrigade ServiceProviderInterviewNotes3 RR/SCHeritageFrameworkDecember2005/January2006 (Meeting#1,December13,2005) CityOfEugene CommentsandObservationsbyJimCarlson,AssistantCityManager;KurtYeiter,Planning Department;JohnnyMedlin,PublicWorks/Parks;LindaPhelps,Police;ConnieBennett, Library;SteveNorris,NeighborhoodServices;MarkSchoening,PublicWorks;MattSchuler, Fire Thegroupwasverylukewarmtotheideaofanon-CityresidentseatontheCityCouncil (oneoftheGovernancestrategiesincludedinthedraftRiverRoad/SantaClaraFramework document).AsforappointmenttoCityboardsandcommissions,theCityalreadyallows non-Cityresidentstoserveonthesegroups TheAssistantCityManagerwasgenerallypositiveabouttheFramework,majorconcerns werewiththenon-CityCouncilseatandresidentialinfillideas GrouphadseriousconcernswiththenumberofideasandstrategiesintheFrameworkthat provideforÒspecialÓoptionforRiverRoad/SantaClara.Concernwasthatsuchspecial optionswouldhavetobeofferedtoallCityneighborhoods.Parityamongneighborhoods wasconsideredtobeamajorissueandconstraint;probablyalltheneighborhoodsinEugene needupdatingoftheirplansandhavesomespecialanduniqueneeds SpecialprovisionsforRiverRoad/SantaClarawouldonlybe viableasshort-termallowancesaspartofalong-termtransitiontocompleteannexation. RRPRDdoesnÕtseemviableinthelong-term,nordoesSCFire.Issueslikethetransferof thevolunteerfirebrigadetoCityservice,orcontractsforrecreationservices,wouldhaveto beshort-termallowances. TheFrameworkideasforgreen-frastructureandsurfacewatermanagementbeingintegrated withparksandstreetsystemsmaybecomplicatedbythefactthatLaneCountyisnot Ògreen-frastructurefriendlyÓ. ThekindofcommunityorneighborhoodplantalkedaboutintheFrameworkcouldnotbea formallanduseplan,perhapsanamalgamationofseveralCityplansandprogramtypes? Discussioncenteredonwhenthetransitionplanningprocessshouldaddressannexationas anendgoal,particularlyinthepublicprocess. TheCityisdoingmanyofthethingsexpressedintheLandscapeportionoftheFramework. PerhapsaresponsecouldbefortheCitytoÒcatalogÓanddocumenttheseinitiativesforthe neighborhoods (LaneFire) LaneFireandRescue CommentsandObservationsbyDaleBorland,DeputyFireChief MergerwithSCFirewouldmeanincreasesintaxestosustaincurrentservicelevelsinthe presentLaneFireserviceterritory.TheequationsimplydoesnotworkforLaneÕsproperty taxpayers TransferofLaneFireterritorywithintheSantaClaraneighborhoodboundarytoSCFire wouldNOTbeaÒminorÓissueforLaneFire.52%oftheLanetaxbaseiswithinSanta Clara.LaneFireconsidersthelargeindustrialcorridorwithintheUGBeastofSantaClaraas thecoreofitsservicedeliveryarea. VolunteersareanimportantpartoftheabilityofLaneFiretoprovidequalityandcost effectivefireprotectionservicestothecommunity.Feelstransferofthevolunteerfire brigadestoEugeneFirewouldbeÒstaunchlyÓopposedbytheunion ServiceProviderInterviewNotes4 RR/SCHeritageFrameworkDecember2005/January2006 LaneFireiswillingtobepartofadiscussionforafireservicetransitionplanforSantaClara, andwouldliketoseetheCityconvenethethreeagenciestoworktogetherwithopenness andhonestytodevelopaplanwithtimelines. (Meeting#2,January12,2006) CityOfEugene CommentsandObservationsbyDennisTaylor,CityManager;JimCarlson,AssistantCity Manager;AngelJones,Library,RecreationandCulturalServicesDirector;TomTallon,Fire Chief;RobertLehner,PoliceChief;SusanMuir,PlanningandDevelopmentDirector;Kurt Corey,PublicWorksDirector;LaurenChouinard,HumanResourceandRiskServicesDirector. Whiletherearemanyissuestosortoutincludingblendedtaxratesandpasthistory,Eugene FirefavorsopeningconversationswiththetwoFireDistrictstoworktowardagreementsfor thetransitionoffireprotectionandEMSservices. TheFireChiefalsonotedtransitionincentivesthatarestillonthetable,forexample EugeneÕsofferthetoSCFirefornocostbaycapacityfora3-yearperiodatthenewCity FirestationwhichwouldfacilitateSCFiretransitioningoutoftheirneighboringstation.He alsofelttherewassomepossibilityofworkingoutsomearrangementwiththeunionforthe volunteerfirebrigades. PlanningstaffisstrugglingwiththeirresponsetotheFramework,includingtheimplied demandforincreasedornewplanningservicesandplanstounincorporatedareasofRiver RoadandSantaClaraandthepotentialimpactsonPlanningstaffcapacitytocommittosuch proposedinitiativesandoptions;andperceivedconflictswithsomegrowthmanagement policiesandstatutoryprovisions. TherewasageneralconcernexpressedthattheCitywouldhavedifficultyestablishing programsand/ormakingspecialallowancesforjustoneortwoneighborhoods;would thereforeperhapsnothavethecapacitytoapplysuchprograms/allowancesCity-wide. TheCityManagerencouragedstafftolookfornewandcreativeapproachesthatwould supporttheRR/SCtransitionplangoals,andthatinturnmighthavepositiveimpactson otherneighborhoodsthroughouttheCity.Heencouragedstafftothinkaboutcreativeways toconceptuallyembracetheneighborhoodsideasforstrategiesandincentivesasapartofan annexationprocess. TocreateavoiceinRiverRoadandSantaClara,staffdiscussedthepositivebenefitsofnon- residentsservingonCitycommittees.Non-residentscanalreadyserveonanyCity committeeexcepttheBudgetCommittee(Statelawstipulatesthatonlyresidentscanserve onthisgroup).ItwassuggestedthattheRRCOandtheSCCOcouldencourageoreven nominateapplicantsforCitycommittees.AswiththeearlierCitymeeting,theresponseto theideaofanon-CityseatontheCityCouncilwaslukewarm. MostofthediscussioncenteredonhowstaffcouldrespondpositivelytotheDraft Framework: ServiceProviderInterviewNotes5 RR/SCHeritageFrameworkDecember2005/January2006 1.IdentifyexistingmechanismsandactivitiesthatcouldsupportFrameworkinitiatives andstrategies. 2.Identifynewmechanismsandapproachesthatstaffmightconsideroroffer. 3.Onlythen,identifyexistingconstraintsandobstaclesthatwouldpreventstafffrom embracingFrameworkinitiativesandstrategies. AssistantCityManagerJimCarlsonwastocoordinatetheformaldepartmentalresponses alongtheselines ServiceProviderInterviewNotes6 RR/SCHeritageFrameworkDecember2005/January2006