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Home My WebLink AboutItem A: Water Quality Waterways Protections ECC UGENE ITY OUNCIL AIS GENDA TEM UMMARY Work Session: Water Quality Protected Waterways Meeting Date: January 28, 2009 Agenda Item Number: A Department: Public Works Staff Contact: Therese Walch www.eugene-or.gov Contact Telephone Number: 682-8647 ISSUE STATEMENT The purpose of this work session is to respond to the City Council’s request that staff provide an estimate of the costs the City would incur to acquire conservation easements in lieu of the proposed Water Quality Protected Waterways regulations, and to receive council direction on the proposal to apply regulatory protections. BACKGROUND Proposal The proposed regulations would protect the physical integrity and water quality function within and adjacent to otherwise unprotected waterways identified pursuant to section 303(d) of the federal Clean Water Act, waterways that are tributaries to those waterways, and headwater streams. Many of these waterways benefit from the incidental water quality protections provided by other City regulations, such as the City’s Goal 5 Water Resources Program. This proposal fills the gaps to provide water quality protection for waterways that are not currently protected by some other means. If the proposed ordinance is adopted, the result will be a system of protection for those waterways that have a direct relationship to those that are water quality impaired. The system of protected waterways, in and of itself, will help “hold the line” on water quality in our local streams. In combination with other efforts, this proposal will help improve water quality over time in our local waterways. City Council Action History – Proposed Water Quality Protected Waterways The Eugene City Council conducted a work session on May 14, 2008, on the proposal to amend Chapter 9 of the Eugene Code with new provisions establishing a /WQ Water Quality Overlay Zone and re- zoning approximately 547 properties to apply the overlay zone. The council held a public hearing on May 19, 2008, and a follow-up work session on June 18, 2008. Council reaction to the proposal has been mixed, with some councilors expressing concerns about taking a regulatory approach to filling the protection gaps. Concerns raised about the recommended approach include the impacts of the regulations on individual property owners, and the view that the ordinance is too permissive and, in effect, would provide little water quality protection. At the June 18 work session, the council directed that, before proceeding, the City Manager return with an estimate of the cost to acquire conservation easements on the identified properties. Z:\CMO\2009 Council Agendas\M090128\S090128A.DOC City Council Action History - Open Waterways Ordinance In April 2000, the Eugene City Council adopted an ordinance into Chapter 6 of the Eugene Code that required certain waterways in the City be left open (no piping or filling). The ordinance was subsequently challenged on the basis that it was a land use decision requiring greater justification and was remanded back to the City by the Land Use Board of Appeals. It ceased to be in effect as of July 2001. The current Water Quality Protected Waterways proposal, a regulation protecting specifically identified waterways for their water quality functions and values, essentially replaces the open waterways ordinance and includes the justification required of land use regulations. The Water Quality Protected Waterways ordinance before the City Council includes removal of the Chapter 6 Open Waterway provisions, which are no longer in effect but are still in the Code, and amending Chapter 9 of the Eugene Code with new provisions. Planning Commission Recommendation The Eugene Planning Commission has recommended that the City Council adopt the draft ordinance. More background on the Planning Commission input is provided in the May 14, 2008, Agenda Item Summary, and electronic files of Planning Commission meeting materials are available on the project website at: http://www.eugene-or.gov/wqpw. Supplemental information provided to the Planning Commission in response to questions and testimony, and printed copies of Planning Commission meeting materials and minutes have been provided for your review along with other material at the City Manager’s Office, Room 105 (in a binder labeled: Water Quality Protected Waterways - Supplemental Information). Those materials have been specifically incorporated into the record for this matter. CONSERVATION EASEMENTS Background A conservation easement is a restriction placed on a piece of property to protect its associated resources, such as wetlands, water quality, habitat, and migration routes. Generally, a conservation easement is a voluntary agreement tailored to meet a specific landowner’s needs and selectively targeted to protect specific conservation values. To be considered for tax benefits, a conservation easement must be monitored and reported upon annually and it must be legally binding, whether the property is sold or passed on to heirs. The easement is signed by the landowner (the easement donor), and the private organization or public agency (the party receiving the easement), and recorded with the property deed. Cost Estimate The proposed Water Quality Protected Waterways would affect a total of approximately 149.7 acres. Of these, 22.4 acres are in some form of City control (ownership and City rights-of-way), therefore the cost estimate is based upon acquiring a total of 127.3 acres, with 91.3 acres from 513 parcels and the remaining 36.0 acres from non-City rights-of-way (ODOT, Lane County). The cost estimate is based on a low to high range of comparable sales for residential, commercial, and industrial uses within the city limits for the year 2008. Because acquisitions would be in the form of conservation easements, and not fee title, a 10% reduction of fee title cost was accounted for. The following acquisition costs include both land and administrative fees (appraisals, wetland delineations, negotiations): $24,609,000 to $63,216,000 Estimated Acquisition Costs: Z:\CMO\2009 Council Agendas\M090128\S090128A.DOC In addition to acquisition costs, the City would incur the costs of annual monitoring and reporting. The following is an estimated annual cost for performing these services by the City assuming all 513 conservation easements would be acquired: $67,000 to $95,000 Estimated Annual Monitoring and Enforcement Costs: Perspective from Local Land Trust Agencies In researching background information about conservation easements, staff met with experienced representatives from the McKenzie River Trust and had conversations with The Nature Conservancy. Upon learning more about the objective of protecting waterways on 513 properties, and that this proposal fills gaps in an existing regulatory framework, the McKenzie River Trust representatives expressed their opinion that a conservation easement approach would be inappropriate and problematic in this application. The following is a brief summary of those meetings and discussions: ·A conservation easement is a legal agreement between a landowner and a land trust or a governmental agency that permanently limits property rights in order to protect “public value.” ·The value and cost of the easement is directly related to the extent to which property rights are restricted. ·Conservation easements typically involve a specific resource site under single ownership involving a willing seller who shares the public value for protecting the resource. ·People are typically motivated to grant conservation easements by their desire to protect their property from unwanted development while at the same time retaining ownership of their land. By granting a conservation easement, a landowner can assure that the property will be protected in perpetuity, regardless of who owns the land in the future. ·While financial gain is not typically the primary motivation for granting a conservation easement, easements that are donated can reduce estate taxes and property taxes. ·Monitoring and enforcing conservation easements can be problematic for situations involving property owners who do not share the value of protecting the intended resource. ·For programs aimed at achieving protections in urban areas affecting numerous parcels, the conservation easement approach is not likely to be an effective protection tool for a variety of reasons: >Timing: given the timeframe needed to negotiate and fund each easement, implementation will occur over time putting resources at risk of being developed and impacted; >Protection Gaps: there will likely be unwilling sellers which could result in a scattering of protections versus an approach where all parcels along waterways are protected from a given point in time; and >Cost: assuming funding is available, acquisition and on-going inspection, reporting and enforcement costs will be high. ADDITIONAL BACKGROUND Drivers for Proposed Water Quality Protected Waterways Eugene’s waterways are part of the larger Willamette River watershed system that provides many beneficial uses such as recreating, fishing, irrigation, and drinking. The main stem of the Willamette River flows through Eugene for approximately six miles. Surface runoff from Eugene’s urban growth boundary is conveyed to the Willamette River, either via direct outfalls, or via a combination of pipes and open waterways, including Amazon Creek, Willow Creek, the Amazon Diversion Channel, the A3 Channel, Fern Ridge Reservoir, and the Long Tom River. These waterways do not meet water quality Z:\CMO\2009 Council Agendas\M090128\S090128A.DOC standards for various pollutants, including bacteria, turbidity, dissolved oxygen, mercury, and temperature. The federal Clean Water Act requires that states establish pollutant load allocations or Total Maximum Daily Loads (TMDLs) for these impaired waterways and allocate pollutant load reductions to “designated management agencies” to bring these waterways back into compliance. The City of Eugene is one of the responsible agencies identified in the 2006 Upper Willamette TMDL and as such submitted a plan outlining its strategies for reducing its contribution of these pollutants. The City of Eugene’s TMDL Implementation Plan was approved by DEQ in December 2008. One element of the plan is this proposal to fill gaps in protections on waterways with a relationship to those not meeting water quality standards. The City of Eugene also holds a permit governing the discharges from its municipal stormwater system to Amazon Creek and the Willamette River. The City’s stormwater permit is scheduled to expire on February 28, 2009. The new stormwater permit is expected to include requirements to assess the affects of urbanization on local waterways and prioritize actions to retrofit the drainage system to address the impacts of urban development on local waterways. More detailed information about the federal and state water quality requirements driving this proposal is included in the May 14, 2008, council packet. In addition to federal and state drivers, local adopted policy in the form of the Comprehensive Stormwater Management Plan (CSWMP, adopted by the City Council in 1993) addresses the multiple benefits of waterways in Policy 1.1: Incorporate the beneficial functions (flood control, stormwater conveyance, water quality treatment) of natural resources a [waterways and wetlands] into the City storm drainage system. One of the Implementation Measures b identified to carry out Policy 1.1 is to “Develop and apply waterside protection ordinances.” Relationship to /WR Water Resources Overlay Zone (Goal 5) The Water Quality Protected Waterways proposal is complimentary to the Goal 5 natural resource protections (including /WB Wetland Buffer and /WP Waterside Protection provisions in the Eugene wetlands plan area and the /WR Water Resources Conservation Overlay Zone adopted in November 2005). Parcels that would be affected by the proposed /WQ Overlay Zone are those that contain or are adjacent to waterways of interest for water quality and are not otherwise incidentally protected by Goal 5 natural resources protections. Where Goal 5 currently applies to a waterway, no additional regulation would be applied through this proposal. This proposal recognizes that existing adopted regulations go a long way towards protecting waterways. CITY COUNCIL OPTIONS 1. Direct City Manager to return the ordinance as proposed. 2. Direct City Manager to return the ordinance with specific revisions. 3. Direct City Manager to take no further action on this matter. CITY MANAGER’S RECOMMENDATION The City Manager recommends Option 1: Direct City Manager to return the ordinance as proposed. a Comprehensive Stormwater Management Plan, Policy 1.1, p. 3-5. b CSWMP, Implementation Measure – Other Action, p. 3-5. Z:\CMO\2009 Council Agendas\M090128\S090128A.DOC SUGGESTED MOTION Move to direct City Manager to return the ordinance as proposed. ATTACHMENTS The following materials are provided to comply with City Council direction from its October 15, 2008, process session. Attachment A includes the legislatively updated ordinance and exhibits. The legislative changes incorporated into the Attachment A ordinance reflect modifications proposed at the June 18, 2008, work session in response to public testimony. Changes to the map (Attachment A - Exhibits A) and the list of affected taxlots (Attachment A - Exhibit B) reflect actions required by the U.S. Army Corps of Engineers to fill a channel to protect the structural integrity of the flood control levee along Amazon Creek near Meadowlark Prairie, as explained in the May 6, 2008, memo to the Mayor and City Council from Parks and Open Space Division Director. Attachment B includes the previously provided draft ordinance and exhibits as of the June 18, 2008, work session. A. Proposed Ordinance and Exhibits (legislatively updated) Exhibit A-1. Compact Disc / Water Quality Waterways Map (updated/provided for council at City Manager’s Office, Room 105) Exhibit A-2. Printed Copy of Water Quality Protected Waterways Map (legislatively updated) Exhibit B. List of Affected Tax Lots Inside City Limits (legislatively updated) Exhibit C. List of Affected Tax Lots Outside City Limits and Within UGB (no changes made) Exhibit D. Draft Legislative Findings (no changes made) B. Previously Provided Draft Ordinance and Exhibits (as of June 18, 2008) Exhibit A-1. Compact Disc / Water Quality Waterways Map (provided for council at City Manager’s Office, Room 105) Exhibit A-2. Printed Copy of Water Quality Protected Waterways Map Exhibit B. List of Affected Tax Lots Inside City Limits Exhibit C. List of Affected Tax Lots Outside City Limits and Within UGB Exhibit D. Draft Legislative Findings FOR MORE INFORMATION Staff Contact: Therese Walch Telephone: 682-8647 Staff E-Mail: therese.walch@ci.eugene.or.us Z:\CMO\2009 Council Agendas\M090128\S090128A.DOC ûÈÈÛÙÔÏ×ÎÈûìÊÍÌÍÉ×ØíÊØÓÎÛÎÙ× Ð×ÕÓÉÐÛÈÓÆ×ÐÃÇÌØÛÈ×ØÖÍÊ åÍÊÑé×ÉÉÓÍÎ ðÛÎÕÇÛÕ×ÛØØ×ØÉÓÎÙ× ÓÉÓÎØÓÙÛÈ×ØÅÓÈÔ ×ÄÛÏÌÐ× ØÍÇÚÐ×ÇÎØ×ÊÐÓÎ×ØÚÍÐØÓÈÛÐÓÙÈÃÌ× ðÛÎÕÇÛÕ×Ø×Ð×È×ØÉÓÎÙ× ÓÉÓÎØÓÙÛÈ×ØÅÓÈÔ ØÍÇÚÐ×ÉÈÊÓÑ×ÈÔÊÍÇÕÔ×ÄÛÏÌÐ× íêøóîûîù÷îíÝÝÝÝÝÝÝÝÝÝÝÝÝÝ ûîíêøóîûîù÷ûøøóîõé÷ùèóíîé èôêíçõô èí èô÷÷çõ÷î÷ùíø÷èôûè÷éèûúðóéôûåûè÷êëçûðóèã íæ÷êðûãâíî÷ûï÷îøóîõé÷ùèóíîé ûîøíöèôûèùíø÷ê÷ì÷ûðóîõíêøóîûîù÷îí ûîøé÷ùèóíîé ûîø íöèôûè ùíø÷ûøíìèóîõèô÷åûè÷êëçûðóèãåûè÷êåûãéïûì ûï÷îøóîõèô÷÷çõ÷î÷íæ÷êðûãâíî÷ïûìûøíìèóîõû é÷æ÷êûúóðóèãùðûçé÷ûîøìêíæóøóîõûî÷öö÷ùèóæ÷øûè÷ èô÷ùóèãíö÷çõ÷î÷øí÷éíêøûóîûéöíððíåé é×ÙÈÓÍÎ èÔ×Ø×ÖÓÎÓÈÓÍÎÍÖø×Æ×ÐÍÌÏ×ÎÈì×ÊÏÓÈÉ×ÈÖÍÊÈÔÓÎé×ÙÈÓÍÎ ÍÖ ÈÔ×÷ÇÕ×Î×ùÍØ×ÓÉÛÏ×ÎØ×ØÛÎØÛÎ×ÅØ×ÖÓÎÓÈÓÍÎÍÖùÓÈÃ×ÎÕÓÎ××ÊÓÉÛØØ×Ø ÈÔ×Ê×ÈÍÈÍÌÊÍÆÓØ× ø×ÖÓÎÓÈÓÍÎÉ ûÉÇÉ×ØÓÎÈÔÓÉÐÛÎØÇÉ×ÙÍØ×ÇÎÐ×ÉÉÈÔ×ÙÍÎÈ×ÄÈÊ×ËÇÓÊ×ÉÍÈÔ×ÊÅÓÉ× ÈÔ×ÖÍÐÐÍÅÓÎÕÅÍÊØÉÛÎØÌÔÊÛÉ×ÉÏ×ÛÎ 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Waterways Waterways identified pursuant to Eugene Code Section 9.4770, and consisting of the following: Tributary to a waterway listed under section 303(d) of the federal Clean Water Act Headwater stream Applicable Setbacks 00.51Mile Applicable Setback = 25 feet from top of high bank for a waterway that is tributary Top of High Bank Other Open Waterways to a waterway identified pursuant to section 303(d) of the federal Clean Water Act Map Data Sources: Centerline of Stream Applicable Setback = 40 feet from the waterway's centerline for Headwater Streams Open Waterways: City of Eugene Stormwater System Taxlots (4/14/08) Taxlots: Lane County Parcel File, as of April 14, 2008 o Eugene City Limits Water Quality Management Areas The /WQ Management Area is comprised of the waterway channel (the area between the top of high Area outside the Eugene bank on each side of the watery) and the applicable setback. 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