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HomeMy WebLinkAboutItem B - Street Plan AmendmentEUGENE CITY COUNCIL AGENDA ITEM SUMMARY Work Session: An Ordinance Amending the November 1999 Street Classification Map Adopted by Ordinance No. 20181 to Designate Collector Streets in the Crest Drive Neighborhood Meeting Date: April 28, 2004 Agenda Item Number: A Department: Public Works Staff Contact: Gary McNeel www. cl. eugene, or. us Contact Telephone Number: 682-8451 AGENDA ITEM SUMMARY This is a work session to review proposed amendments to the November 1999 Street Classification Map to designate certain streets in the Crest Drive neighborhood as collector streets. BACKGROUND Council Action History On November 22, 1999, the City Council adopted, by Ordinance No. 20181, the "November 1999 Street Classification Map." The map depicts the classification of major streets within the Eugene Urban Growth Boundary, is consistent with TransPlan and the Metro Plan, and implements the goals and policies contained therein. The council adopted as findings, in support of its adoption of the Street Classification Map, the Eugene Arterial and Collector Street Plan (ACSP). The November 1999 Street Classification Map does not classify the streets in the Crest Drive neighborhood. A note in the legend of the map states that the streets in the Crest Drive neighborhood will be classified after the adoption of a Crest Drive Transportation Study. (See Attachment A). Policy Issues Should the November 1999 Street Classification Map be amended to classify the streets in the Crest Drive neighborhood as collector streets? Council Goal Action Priority Sustainable Community Development: "A community that retains a high quality of life and a healthy economy, effectively link; land use and transportation planning, and succes,fully manages growth and change in the urban environment" The November 1999 Street Classification Map classifies all of the major roadways within the City of Eugene, except for the roadways in the Crest Drive neighborhood. The classification of the streets in the Crest Drive neighborhood will complete the street classification process for all of the roadways within the City of Eugene. The completion of the street classification process is a necessary element of the goal for "Sustainable Community Development." Y:\CMO\2004 Council Agendas\M040428\S040428B.doc Financial and/or Resource Considerations Amendment of the November 1999 Street Classification Map will have little financial or staffing impacts. The amended map will be produced as a stand-alone insert for current holders of the ACSP and copies will be made available at the Permit and Information Center and Public Works Department. Other Background Information The Eugene Planning Commission reviewed the proposed amendments to the November 1999 Street Classification Map and, through action on February 23, 2003, recommended adoption of the amendments. In addition to the proposed amendment to the November 1999 Street Classification Map, staff is developing Context Sensitive Design Standards that will be adopted through Administrative Order as an amendment to the Standards and Guidelines for Eugene Streets, Sidewalks, Bikeways and Access Ways. These standards are intended to ensure that any proposed future improvement projects in the Crest Drive neighborhood contain an inclusive and continuous public involvement process and that community interests and natural features are protected and maintained as much as possible. OPTIONS The City Council has several options: 1) Proceed with the public hearing scheduled for May 10, 2004. 2) Table the issue, thereby making no changes to the Street Classification Map (all streets within the Crest Drive neighborhood will remain unclassified). 3) Identify additional modifications to the November 1999 Street Classification Map and draft ordinance that staff should address prior to the public hearing. STAFF RECOMMENDATION Staff recommends that the council proceed with the public hearing on May 10, 2004. ATTACHMENTS A. November 1999 Street Classification Map adopted by Ordinance No. 20181 B. Draft ordinance including Exhibit A (see Attachment A) and Exhibit B, the Crest Drive Area Transportation Study C. Staff Report FOR MORE INFORMATION Staff Contact: Gary McNeel Telephone: 682-8451 Staff E-Mail: gary.a.mcneel~ci.eugene.or.us. Y:\CMO\2004 Council Agendas\M040428\S040428B.doc ATTACHMENT B ORDINANCE NO. AN ORDINANCE AMENDING THE NOVEMBER 1999 STREET CLASSIFICATION MAP ADOPTED BY ORDINANCE NO. 20181 TO DESIGNATE COLLECTOR STREETS IN THE CREST DRIVE NEIGHBORHOOD. The City Council of the City of Eugene finds that: A. The July 2002 TransPlan adopted by the City Council is the current long-range transportation plan for the Eugene-Springfield area and is the basis for the transportation elements in the adopted and acknowledged Metro Plan. B. In Eugene, as in other cities, a large portion of the public right-of-way is devoted to transportation facilities such as streets, sidewalks, bikeways, and access ways used by automobiles, trucks, transit vehicles, bicycles, and pedestrians. C. Included as a component of the November 1999 Eugene Arterial and Collector Street Plan is a map entitled "Street Classification Map - Figure 60" that depicts the classification of major streets within the Eugene Urban Growth Boundary, that is consistent with TransPlan and the Metro Plan, and implements the goals and policies contained therein. The classification of streets into Major Arterials, Minor Arterials, Major Collectors, and Neighborhood Collectors represents a reasonable basis for classification, and the criteria to be used in determining the specific widths for right-of-way and paving, and provides reasonable guidance to the public, Council, and City administrative staff. On November, 22, 1999, the Street Classification Map was explicitly adopted by Ordinance No. 20181. D. The November 1999 Street Classification Map did not classify the streets in the Crest Drive neighborhood. A note in the legend of the Street Classification Map states that the streets in the Crest Drive neighborhood will be classified after the adoption of a Crest Drive Transportation Study. E. City staff has completed the Crest Drive Area Transportation Study, a copy of which is attached as Exhibit B, hereto. F. Based on the Crest Drive Area Transportation Study, City staff recommend that the Crest Drive area streets be classified in the manner shown on Exhibit A attached hereto. Pursuant to EC 9.6850, amendments to the Street Classification Map must be made by ordinance. Thus, the November 1999 Street Classification Map should be amended in the manner shown in the map attached hereto as Exhibit A. Now, therefore, based on the above findings, THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS: Section 1. The 1999 Street Classification Map is hereby amended to classify the streets in the Crest Drive neighborhood in the manner shown in Exhibit A, attached hereto. Except as amended herein, the 1999 Street Classification Map, adopted by Ordinance No. 20181, Ordinance - 1 remains in full force and effect. To the extem any street classification comained in Exhibit A conflicts with a classification contained in any other ordinance, resolution, order or plan, except local streets in the Eugene Local Street Plan, the classification in Exhibit A controls. Section 2. The Crest Drive Area Transportation Study is hereby adopted as findings in support of the actions taken herein. Passed by the city Council this Approved by the Mayor this 24th day of May, 2004 24th day of May, 2004 City Recorder Mayor Ordinance - 2 Crest Drive Area Transportation Study City of Eugene Public Works September 2003 Background and History The Eugene Arterial and Collector Street Plan (ACSP), adopted by the City Council in November of 1999 did not classify the streets in the Crest Drive neighborhood. On page 5 of the document's preface, one of the answers to frequently asked questions speaks directly to this issue, stating: "The ACSP will have no effect on the Crest Drive neighborhood at the present time. The Planning Commission is recommending to the City Council that a separate transportation study be undertaken for the Crest Drive neighborhood to determine appropriate classifications and street design standards for that neighborhood. Until that study is completed no classifications or standards are proposed for Oest Drive area streets, and no street reconstruction or street design projects will be initiated in this area." Many roadways in the Crest Drive area have pavement surfaces that are worn out and are deteriorating rapidly. Some street segments are experiencing rising traffic volumes due to infill development within the Urban Growth Boundary (UGB) and continued growth in unincorporated areas of the County outside the UGB. There are two distinct street types found in the Crest Drive neighborhood, those with curbs and gutters, and others that are unimproved roadways with open ditches. The paved surfaces vary widely with many older roadways being oil mats or macadam surfaces over former gravel roadways, while newer streets have multi-layer asphaltic pavements applied over engineered aggregate bases. Most of this neighborhood was annexed to the City of Eugene after 1946, with annexations being documented by city ordinances in 1948, 1957, 1958, 1960, 1962, 1964, 1967, and 1969. Smaller parcels have been annexed since that time and nearly all of the land inside the Urban Growth Boundary in this study area is currently within Eugene City limits. Study Objectives This study was initiated to develop appropriate roadway classifications within the study area bounded generally by Willamette Street on the east, West 28th and West 29th Avenues on the north, Chambers Street and a line extended along the Urban Growth Boundary to Blanton Road on the west, and West 40th and West 39th Avenues on the south (see Area map shown as Exhibit A in the Appendix). Staff expected to identify at least one significant east/west route and one central north/south route through the neighborhood to serve as collectors. To achieve an inclusive process with residents, we mailed 1,900 postcards to addresses in the Crest Drive neighborhood. An advisory committee of volunteer citizens from the neighborhood was assembled to involve citizens who are most familiar with the roadways being studied in the process. A series of five meetings were held at Morse Ranch and downtown city facilities to develop the framework for the study, and an open house conducted February 13, 2003. These efforts were to involve the committee in the development of staff recommendations contained in this report. A list of committee members is Exhibit B in the Appendix. The results of this study, in the form of an amendment to the Eugene Arterial & Collector Street Plan will be presented to the Eugene Planning Commission in September of 2003, and they are anticipated to forward their recommendations in the form of our final report to the City Council by the end of 2003. Staff is also evaluating the current design standards for major streets as indicated in the ACSP to determine the feasibility and applicability of those standards to the roadways in the Crest Drive neighborhood. The presence of significant natural features in this area suggests the difficulty in applying normal urban standards, which would typically included curbs and gutters, setback sidewalks with street trees and street lighting. A concept suggested by staff and endorsed by the committee is to apply "context sensitive design" criteria in future efforts to improve streets in the Crest Drive neighborhood. Street Classification Nine streets, divided into fourteen segments, were evaluated using the matrix developed in the ACSP. A copy of the results is shown on Table 1 in Appendix A. The street segments that were initially determined to be appropriately considered for classification as neighborhood collectors included: > McLean Blvd. from 28th to Chambers > Friendly Street between 28th and Lorane Hwy. > Lorane Hwy. between 29th/Washington and Friendly/Storey Crest Drive from Willamette to Crest Dr. and lower Crest Dr. from Crest to Storey Storey Blvd. from Lorane Hwy. to Blanton Crest Drive west of Blanton Blanton Road between Storey and Sundial Sundial and a future extension to 40th and 40th Avenue to Braeburn The criteria in the Matrix utilized to determine the appropriate roadway classification include the Average Daily Traffic (ADT) measured (or projected) on the roadway segment; the number of Alternative Modes using the segment; the length of the street segment; the spacing or distance to the nearest parallel street of similar or higher classification; and Connectivity, which indicates the degree to which the street carries traffic to and from other major streets. Points for each criterion were then summed to determine the total rating and suggested classification. Review of these results by the committee elicited a few comments regarding the indicated routes, including the following: > The need for designating the lower segment of Lorane Highway between the Storey/ Friendly intersection and Washington Street at 29th Avenue and the segment of Friendly between the Storey/Lorane intersection and 28th Avenue. The need to identify the future 40th/Sundial connection as a neighborhood collector. The wisdom of connecting West 40th Avenue to Sundial/Blanton through an area several residents identify as having unstable slopes, significant natural resources and being a corridor for wildlife. Staff Response: Traffic counts and observations indicate travel behavior that clearly illustrates two routes to and from Storey Boulevard; one of which follows Friendly Street to or from 28th Avenue, the other which uses a short segment of Lorane Highway to Madison Street to 28th Avenue, or Washington Street at 29th Avenue, or to and from 29th Avenue east of Washington Street. Neighborhood Collectors in the City of Eugene are found only in residential neighborhoods and typically provide important links between two or more major streets (arterials or other collectors) while providing a high degree of access to individual properties. Examples of neighborhood collectors include Harris Street from 18th to 30th, Taney Street from Barger to Marshall, and Monroe Street from 8th to 13th. Many of the travelers that would potentially utilize the new connection of 40th with Sundial/Blanton would likely have a point of origin or destination on one or both sides of the new link (Brookside, Braeburn, Crest Drive or Storey Blvd.). This new link could reduce vehicle miles traveled (VMT) in this area by providing a more direct connection between westerly portions of the Southeast Neighbors and southerly portions of the Crest Drive neighborhoods. There is existing right-of-way (R/W) between the end of W. 40th Avenue and Sundial Road, south of Blanton Road. The connectivity standard established by ordinance in 1996 as a part of the Eugene Local Street Plan (LSP) will likely require this connection as a part of any proposed development of vacant or underutilized properties adjacent to this R/W. The LSP shows this connection and also a future roadway connecting the 40th/Sundial intersection with Sky Park Way. These new street segments could connect the Brookside and Braeburn residents more directly to and from the Crest Drive/Lorane Highway area. The need for such a connection to be classified as a Neighborhood Collector is at the margin and following the public input process, the support for classifying such a future connection as a Neighborhood Collector is clearly not available. Staff is therefore recommending that we drop the last three links from the list of segments being considered for such classification. Therefore, Blanton Road between Storey and Sundial, Sundial and a future extension of 40th and 40th Avenue to Braeburn will remain local streets. Design Standards In addition to the classification issues noted above, substantial concerns have been voiced by several committee members regarding the feasibility of applying current standards to future improvement projects on these streets. As indicated in the Study objectives, city staff and the committee have been examining the current design standards for major streets, including a review of the design standards contained in the ACSP, which has 13 alternatives for the neighborhood collector classification. We also examined two design alternatives that were developed as a part of the Royal Nodal Development Plan that proposes utilizing bioswales with intermittent curbs rather than a more traditional piped stormwater collection and conveyance system. In addition to this example, we also discussed the recent reconstruction of Delta Highway, north of Green Acres Road that made use of an existing perforated pipe subsurface drainage swale that was functioning well by incorporating intermittent curbs along that frontage. Another design feature that the committee discussed at length was the sidewalk element of streets in the south hills. Currently the ACSP requires setback sidewalks on one or both sides of all neighborhood collector streets. While setback sidewalk could be constructed on at least one side of most roadways in the Crest Drive area, existing trees and the optional stormwater collection and conveyance techniques, as discussed above, some flexibility needs to be applied to the standards. We propose to permit meandering concrete sidewalk where trees, steep slopes or swales/drainage ditches would be impediments in compliance with ADA, or as close as practicable. We further propose and on the opposite side consideration could be given to constructing an alternative materials pedestrian path that could be surfaced with bark chips, crushed rock, asphalt or other suitable materials. The above drainage and walkway options are examples of Context Sensitive Design (CSD), an emerging roadway design technique that is flexible and sensitive to community values. CSD is a collaborative, interdisciplinary methodology that involves all stakeholders throughout the project development process to design a transportation facility that fits its physical setting and preserves scenic, aesthetic, historic, and environmental resources, while maintaining safety and mobility. CSD is an approach that that considers the total context within which a transportation improvement project will exist. CSD requires an early and continuous commitment to public involvement, flexibility in exploring new solutions, and an openness to new ideas. Community members play an important role in identifying local and regional concerns and solutions that may better meet and balance the needs of all stakeholders. Context Sensitive Design promotes six key principles, including: 1. Balance safety, mobility, community, and environmental goals in the project. 2. Involve the public and affected parties early and continuously. 3. Use an interdisciplinary team tailored to each projects needs. 4. Address all modes of travel/transportation. 5. Apply flexibility inherent in design standards. 6. Incorporate aesthetics as an integral part of good design. Conventional roadway design standards define features such as minimum lane widths, minimum degrees of horizontal and vertical curvature, design speed, and design vehicle. They often reflect the assumption that wider, straighter and flatter roadways are better, resulting in wider roadways and higher design speeds than what may be optimal in a given situation. When applied rigidly, conventional standards can actually hinder efforts to achieve various community objectives. Context Sensitive Design has been termed by the U. $. Department of Transportation, Federal Highway Administration, as "Thinking beyond the pavement". ATTACHMENT C Public Works Engineering Transportation Planning City of Eugene 858 Pearl St 3rd Floor MEMORANDUM Eugene, Oregon 97401 (541) 682-5291 (541) 682-5598 FAX www. ci. eugene, or. us/PW Date: April 20, 2004 To: Mayor Torrey, Eugene City Council From: Gary McNeel, Sr. Transportation Analyst, PWE Re: 1999 Street Classification Map Amendments I. Backeround In November of 1999, the City Council adopted by Ordinance No. 20181 the Eugene Street Classification Map, and adopted, by Resolution No. 4608, the Revised Design Standards and Guidelines for Eugene Streets, Sidewalks, Bikeways and Access Ways. Both of these documents are components of the Arterial and Collector Street Plan (ACSP). The 1999 Street Classification Map does not classify the streets in the Crest Drive Neighborhood. The Street Classification Map contains a note in the legend stating: "Classifications to be determined following adoption of Crest Drive Area Transportation Study." The text on page 5 of the ACSP, containing answers to frequently asked questions, provides further detail regarding the streets in the Crest Drive neighborhood. The query is: "I live in the Crest Drive neighborhood. What effect does the Arterial and Collector Street Plan have on street classifications or street design in that neighborhood?" The response states: "The ACSP will have no effect on the Crest Drive neighborhood at the present t~me. The Planning Commission is recommending to the City Council that a separate transportation study be undertaken for the Crest Drive neighborhood to determine appropriate classifications and street design standards for that neighborhood. Until that study is completed, no classifications or standards are proposed for Crest Drive area streets, and no street reconstruction or street design projects will be initiated in this area." In October of 2002, City staff sent over 1,900 postcards to addresses in the Crest Drive neighborhood notifying residents of the upcoming transportation study and soliciting volunteers for a citizen advisory committee to assist with preparation of the draft report. 27 residents agreed to assist with the effort and a series of six work sessions with the group were conducted between November 2002 and February 2003, culminating in an open house hosted February 13, 2003. The committee assisted with preparation of the list of candidate street segments (for further analysis as identified through traffic routes), and application of each street through the classification matrix (from the ACSP) which was used to classify major streets throughout the city. The committee raised several concerns that were responded to by staff and the report has been acknowledged, yet not totally endorsed, by the committee. In addition to street classification, the Crest Drive Transportation Study focuses on adopted street design standards and the applicability of those standards to streets in the Crest Drive neighborhood. The presence of significant natural features and steep terrain in this area make it difficult to apply typical urban standards, which usually include curbs and gutters, setback sidewalks with street trees and street lights. A concept suggested by staff and endorsed by the committee is to apply "Context Sensitive Page 1 of 1 Design" (CSD) criteria to future street improvements in this neighborhood. CSD is an emerging roadway design technique that is flexible and sensitive to community values. CSD is an interdisciplinary methodology that involves stakeholders throughout the project development process to design a transportation facility that fits its physical setting and preserves scenic, aesthetic, historic, and environmental resources, while maintaining safety and mobility. On November 4, 2003, the Planning Commission held a public hearing on the proposed Street Classification Map amendments (classifying six segments of street in the Crest Drive area as Neighborhood Collectors) and proposed amendments to the Design Standards and Guidelines for Eugene Streets, Sidewalks, Bikeways and Accessways, to permit the use of Context Sensitive Design (CSD) for transportation improvement projects in the Crest Drive area. At the follow-up November 17, 2003, work session, the Planning Commission re-opened the record until January 16, 2004, to solicit additional input from residents and potentially affected parties. On February 23, 2004, the Planning Commission held a work session on the proposed amendments to the Street Classification Map amendments, the proposed adoption of Context Sensitive Design Standards to be included in the Design Standards and Guidelines for Eugene Streets, Sidewalks, Bikeways and Access Ways, and the proposed adoption of Figure 5 la, a new "Example Neighborhood Collector" utilizing the Context Sensitive Design Standards. Before the Planning Commission, the proposed Street Classification Map amendment was mistakenly identified as a refinement plan amendment. The 1999 Street Classification Map was not adopted as a refinement plan, thus, amending the map is not a refinement plan amendment. See Ordinance No. 20181. Chapter 9 of the Eugene Code does not identify the Street Classification Map as a refinement plan, but rather, EC 9.6850 states, in part: The November 1999 Street Classification Map adopted by Ordinance No. 20181 and as amended by Ordinance thereafter, shall be the basis for determining the correct classification of a street as a major arterial, minor arterial, major collector, or neighborhood collector in order to meet transportation access, and safety needs of an area and for determining the dedication, design and location of streets to be required, other than local streets as described in the Eugene Local Street Plan. At the February 23, 2004, meeting the Planning Commission adopted the recommendation that Council approve the adoption of the amended Street Classification Map. The Planning Commission also adopted recommended revisions to the Context Sensitive Design Standards. Staff will take into account the Planning Commissions recommended revisions when preparing the administrative order revising the Design Standards and Guidelines for Eugene Streets, Sidewalks, Bikeways and Accessways (Resolution No. 4608). II. Street Classification Map Much of the concern about the proposed map amendments focuses on the nature of any future improvements; specifically concerns expressed included: The widening of roadways, increases in speed and volume of traffic, the financial impact of future assessments on homeowners; and sense that recent developments will not be paying their fair share. Every major street reconstruction over the past five years is a testimony of the City of Eugene's "thinking beyond the pavement". This is demonstrated on Kingsley Street, 15th Avenue from Jefferson to Willamette, Terry Street south of Royal, Ayres Road, North Delta Highway, Gilham Road from Ayres to Honeywood, and Broadway between Oak and Lincoln. The upcoming improvement of Garden Way will further illustrate the City's commitment to modernization while preserving and protecting a significant adjacent historic housing ensemble. Page 2 of 2 Wider streets typically require more right of way to build and they can induce higher travel speeds. The increased impervious surface found on wider streets creates more stormwater runoff and requires a greater maintenance and preservation budgetary commitment. The 1996 Eugene Local Street Plan and 1999 Eugene Arterial & Collector Street Plan focus on building narrower streets throughout Eugene; this area will be no exception. All future projects will evaluate whether the roadway is a route for just autos, traveling and parking, or if there are needs for bicycles and/or transit vehicles to share the space. Travel lanes will typically be 10 or 11 feet wide, up to a maximum of 14 feet. On-street parking requires an additional 7 feet of width, but would only be provided where requested and where the existing roadbed would permit it. City funding for maintenance and preservation is very limited and dictates that only durable improvements are constructed. Some of the testimony suggests that the City Council rescind the study and continue to leave streets in this area unclassified; staff feels that this is not a good option at this juncture. All roadways within the City of Eugene need to be classified and no roadway improvement whether initiated by the residents or by council action can occur in the Crest Drive area until a decision is made on the appropriate classification of streets in the area. As noted above, the limited resources available for maintenance and preservation require that roadway improvements be lasting and durable. There are over 2,000 households depending upon these currently unclassified street; the City has an obligation to provide those residents with transportation services, but cannot do so properly without completion of this effort. The City of Eugene places a high value on the use of alternative modes such as walking, bicycling and public transit. The current state of roadways in the Crest Drive area make it very difficult for the City to provide these needed urban services. In addition to area residents, nearby destinations such as Crest Drive Elementary School, Morse Ranch and Lafferty Parks, and nearby commercial areas and services like Flicks and Pics, Dari-Mart, Willamette Plaza and the US Post Office are also reliant on this transportation system. Growth in and around the community has increased traffic on most roadways througout the City by about 1 to 2% per year. However, through routes (streets that connect with other streets at both ends) in this neighborhood have grown at a slightly lower rate, due mostly to their proximity with the Urban Growth Boundary. The deteriorated surface conditions of these main roads will continue to degrade, even if travel volumes do not change. If future improvements are constructed on these roadways, the traffic volume would not be anticipated to change, since the points of origin or destination of any of the traffic would not be altered. The inclusion of traffic calming techniques would ensure that traffic speeds would actually be reduced rather than increased. City staff's intent for this effort has been to identify at least one predominantly east/west and one north/south route through the neighborhood for designation as neighborhood collectors, like the ACSP did for the rest of the community. The classification matrix from the ACSP was utilized to select the most logical routes on which the classification could be applied. The analysis indicates that the most logical east/west route includes the segment of Crest Drive between Willamette and Storey Boulevard, and the extension of Crest Drive west of Blanton/Storey. Coincidentally, this segment is also near the geographic center of the neighborhood, i.e. halfway between 29th/29th and 39th/40th avenues. The analysis also identified an appropriate north/south route, composed of several individual street segments. The recommended north/south Neighborhood Collector route includes the following segments: Crest Drive from Blanton to Storey, Storey Boulevard from upper Crest to Lorane Highway, and Friendly Street between Lorane Hwy. and 28th Avenue. These segments represent the most direct alignment for a Neighborhood Collector classification, which is also near the geographic center of the neighborhood; i.e. near the half-way point between Chambers and Willamette streets. The proposed designation of McLean Boulevard between Chambers and 28th Avenue as a Neighborhood Collector (NC) recognizes an existing travel patter, but will have no physical impacts on the street, since that roadway is fully improved to NC standards. The only other area initially proposed for Neighborhood Page 3 of 3 Collector designation was lower Lorane Highway, which recognized the pattern of travel between Storey and Madison or Washington, as a route to or from Jefferson Street (the most direct connection between the neighborhood and 1-105). Staff now recommends the elimination of that segment for NC designation, to simplify the selection of one primary north/south and one east/west collector route. iii. Context Sensitive Design While this work session is for the ordinance amending the Street Classification Map, the public has consistently raised concerns regarding the potential future design of the streets in the Crest Drive area. To that end, Staff has been working with the citizen committee on Context Sensitive Design (CSD) Standards for that area. Council will not be acting on these CSD Standards. (Staff previously believed that Council would be acting on these Standards; the City Attorney's office informed Staff that an amendment to the Design Standards and Guidelines is done administratively.) Staff will be preparing an administrative order for adopting the CSD Standards and will have a draft of that administrative order as background for the Council at the public hearing scheduled for the Street Classification Map amendments (may 10, 2004). At the Planning Commission public hearing, the Planning Commission requested that staff prepare additional information on Context Sensitive Design (CSD) Standards, including information on the nature of assurances that the City could provide to residents that their input and concerns would be taken into account when future projects are being developed. The Design Guidelines and Standards for Streets, Sidewalks, Bikeways, and Accessways provide for the safe and efficient operation of each facility type for all users, and to ensure that public space is used judiciously and appropriately. The Purpose section in the ACSP includes text noting: "Most situations involving street construction or improvements' will require a degree of JIexibility in applying the design standards'. For both new and existing streets, there may be trees, buildings, right-of-way limitations or other features which may cause a narrower street to be constructed or may require 'custom fitting' of certain design features. Public input from residents' along the street and users of the street will need to be coupled with technical expertise, to create a street design that is sensitive to the specific needs' and features of each situation." During development of the Crest Drive Area Transportation Study, several committee members raised concern about the feasibility of applying current design standards to future improvement projects on streets in the Crest Drive area. City staff and residents serving on the committee examined the Design Standards and Guidelines (Resolution No. 4608), which contains 13 alternatives for neighborhood collectors. We also examined two design alternates that were developed as a part of the Royal Nodal development plan that proposes the use of bioswales with intermittent curbs in place of traditional piped stormwater collection and conveyance systems. Also discussed was the sidewalk element, particularly as applied to streets in the south hills. Currently, the Design Standards and Guidelines require setback sidewalk on both sides of all neighborhood collector streets, unless they qualify for an exception. While setback sidewalk may be able to be constructed on at least one side of most roadways in the Crest Drive area, existing trees, terrain, and optional stormwater collection and conveyance techniques could create the need for more flexibility than current standards afford. The committee proposed to permit meandering concrete sidewalk wherever trees, steep slopes, swales or ditches can be protected and preserved by altering the location of the walk. We further proposed consideration of an alternative materials pedestrian path on the opposite side of the concrete Page 4 of 4 walk where bark chips, crushed rock, asphalt, or other suitable materials could provide for pedestrian travel. These drainage and walkway options are examples of Context Sensitive Design (CSD) Standards. CSD is an approach that considers the total context within which a transportation improvement project will exist. CSD requires an early and continuous commitment to public involvement, flexibility in exploring new solutions, and an openness to new ideas. Community members and residents play an important role in identifying local and regional concerns and solutions that may better meet and balance the needs of all stakeholders. Context Sensitive Design promotes six key principles, including: Balance safety, mobility, community and environmental goals in the project. Involve the public and affected parties early and continuously. Use an interdisciplinary team tailored to each projects needs. Address all modes of travel/transportation. Apply flexibility inherent in design standards. Incorporate aesthetics as an integral part of good design. Conventional roadway design standards define features such as minimum lane widths, minimum degrees of horizontal and vertical curvature, design speed, and design vehicle. They often reflect the assumption that wider, straighter and flatter roadways are better, resulting in sleeker roadways and higher design speeds than what may be optimal in a given situation. When applied rigidly, conventional standards can actually hinder efforts to achieve various community objectives. Context Sensitive Design has been termed by the U.S. Department of Transportation, Federal Highway Administration as "thinking beyond the pavement". Residents who live in areas where streets are being reconstructed need assurances that their concerns will be addressed and that their comments about the future street design will be heard and considered. Accordingly, Staff intends to prepare and administrative order that amends the Design guidelines and Standards for Eugene Streets, Sidewalks, Bikeways, and Accessways to include the items discussed below. Public Involvement in Context Sensitive Design Governmental actions that involve change to existing residential neighborhoods tend to be controversial. The following strategies are aimed at facilitating open communication with affected parties and to ensure continuous public involvement, up to and including the decision-making process, which will help minimize conflicts and foster public trust: 1. The process will be fair, reasonable and open Citizens need to know that the decision-making process is fair and reasonable, that they are being heard, and their concerns are being considered. Roadway projects or actions will not be developed for the Crest Drive area, nor will physical changes to existing roadways be imposed upon residents without early and continuous public involvement. To initiate a project, city staff will conduct an open house or charette to solicit comments and ideas from the public. A citizen involvement committee or citizen jury will be formed with citizens, potentially affected property owners, businesses, or other interested parties to assist with design and development of the project. The committee or citizen jury will be advisory and shall assist staff in deliberating key issues, collaborating on the resolution of complex or controversial issues and formulating appropriate courses of action. Page 5 of 5 2. Stakeholders will be invited and involved The objective of public involvement with CSD project development is to bring public concerns to the forefront so they can be debated and resolved. We will solicit the early and continuous involvement of major stakeholders in the process and no one who wants to participate will be excluded. Outreach techniques may be formal and informal and will be adaptive to the availability and profile of volunteers. 3. Public Involvement will parallel the decision process The public involvement process for CSD project development will not be a discrete task, and will be integrated into the work program and will parallel the technical decision-making process. Employing CSD techniques is anticipated to add time to the project development process and timelines shall be adjusted to provide the necessary additional time for the committee or citizen jury. 4. Continuity of involvement as projects progress Continuity of public involvement in CSD will be maintained to ensure the project is kept on track without losing support. Many times citizen interest will decline if issues are not clear, are considered to be insignificant, or all contributions have been made. We will commit to preparing summary reports of decisions and commitments that have been made and the process through which they were reached. These reports, the minutes of all meetings, and history of public involvement will become an essential part of the project documents and will ensure that commitments are carried through into construction or deployment of any changes. 5. Provide the City's basis for decision making, including policies and guidelines The public involvement process will include disclosure of the policies and guidelines that regulate roadway design in the City of Eugene, since this is an important factor in the decision process. As decisions are made, staff will be required to demonstrate how those policies and guidelines affect the outcome. The need for safety, constructibility, maintainability and cost-effectiveness of each element must be balanced with issues of livability and the need to move goods, services, and people. We will also strive to demonstrate that any concepts or alternatives proposed by the public that cannot be incorporated due to policy or guideline incompatibilities were given a fair review and due consideration. 6. Seek a clear understanding of public concerns CSD public involvement will provide opportunities for people to express their specific concerns. Property owners and interested parties opinions will be actively solicited and the project objectives shall address these concerns. 7. Demonstrate that concerns will be considered It must be clear to participants that all projects are open to new ideas and we have a process for considering modifications. The CSD public involvement project will provide a role for citizens in the decision-making process and staff will seek to modify the project in response to valid public concerns. The challenge is to balance technical solutions and public concerns, while adhering to critical elements of safety, maintenance, and operational standards that regulate project development. Page 6 of 6 8. Follow-up and Feedback All issues raised through the public involvement process will be followed up promptly and resolved with participants, or clear responses to concerns will be provided. Key recommendations or issues will be summarized, staff responses to each will be distributed and future opportunities to participate will be defined. Whenever additional analysis is required, it shall be completed as soon as practicable after concerns or comments are received. Although full consensus is generally unattainable, we will endeavor to hold this as our prime objective as we achieve resolution of all issues. IV. Conclusion At this time, Staff asks that Council proceed with the public hearing scheduled on the proposed amendments to the 1999 Street Classification Map. Staff is drafting the administrative order for the CSD Standards, incorporating Planning Commission's recommended revisions, and will have a draft of the administrative order available as background information for Council at the May 10, 2004, public hearing. Page 7 of 7