HomeMy WebLinkAboutItem 5: An Ordinance Adopting an Updated Eugene Airport Master Plan
ECC
UGENE ITY OUNCIL
AIS
GENDA TEM UMMARY
Action: An Ordinance Adopting an Updated Eugene Airport Master Plan, a Refinement
Plan of the Eugene-Springfield Metropolitan Area General Plan (Metro Plan);
Adopting a Severability Clause; and Providing an Effective Date
(City File RA 10-1, Lane County File PA 10-5284)
Meeting Date: September 27, 2010 Agenda Item Number: 5
Department: Planning and Development Staff Contact: Gabe Flock
www.eugene-or.gov Contact Telephone Number: 541/682-5697
ISSUE STATEMENT
The City Council is scheduled to take action on an ordinance adopting the updated Eugene Airport
Master Plan, as a refinement to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan).
Separate deliberation and action by the Lane County Board of Commissioners is scheduled for the
following day, September 28, 2010.
BACKGROUND
The current update to the Eugene Airport Master Plan replaces earlier versions as a refinement to the
Eugene-Springfield Metropolitan Area General Plan (Metro Plan). This plan provides guidance
regarding specific airport functions including commercial aviation, general aviation, and airport-related
commercial and industrial services associated with the airport. This update which is required by the
Federal Aviation Administration will serve as a development guide for the airport to meet aviation
demand through the planning horizon of 2026. It provides guidance related to possible airport facility
improvements, financial and business planning, land use and project coordination. Unlike the adoption
process for the 1999 Airport Master Plan, the current update does not include or require any
amendments to the Metro Plan or other locally adopted plans such as TransPlan. No changes to
existing land use designations, zoning, or adopted policy are proposed.
The Eugene City Council and Lane County Board of Commissioners held a joint public hearing on
September 14, 2010, to consider the proposed update to the Eugene Airport Master Plan. No public
testimony was received. However, the record was left open to allow revisions to the findings for
Statewide Planning Goal 13 regarding Energy Conservation, and for staff response to questions that
were raised by councilors and commissioners following the hearing. The revised findings are attached
for reference, and a staff response to additional questions that were raised will be provided under
separate cover. The ordinance and revised findings supporting approval are attached, as well as an
executive summary of the updated master plan, for ease of reference.
A complete copy of the updated Eugene Airport Master Plan, which is the subject of this action,
www.eugene-or.gov
remains available on the City’s website for the Eugene Airport at: (on the Eugene
Airport home page, scroll down and click on “Draft Master Plan Update” along the left-hand column).
Z:\CMO\2010 Council Agendas\M100927\S1009275.doc
Councilors and commissioners have already received a copy of the master plan on disk. The full
master plan document will be included as a formal exhibit to the proposed ordinance.
Otherwise, a full set of record materials, including a color hardcopy of the updated Eugene Airport
Master Plan remains available in the City Council office for reference.
RELATED CITY POLICIES
Eugene Code requires that the adoption of a refinement plan update be consistent with the Metro Plan
and Statewide Planning Goals. Consistency with the Metro Plan and Statewide Planning Goals is
addressed in the supporting findings which are attached as an exhibit to the implementing ordinance.
COUNCIL OPTIONS
The City Council may consider the following options:
1. Approve the ordinance.
2. Approve the ordinance with specific modifications as determined by the City Council.
3. Deny the ordinance.
CITY MANAGER’S RECOMMENDATION
The City Manager recommends that the City Council close the public record and approve the
ordinance. The Lane County Board of Commissioners is scheduled for separate deliberation and
action the following day, on September 28, 2010.
SUGGESTED MOTION
Move to close the record and approve the ordinance adopting the updated Eugene Airport Master Plan,
as a refinement to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan).
ATTACHMENTS
A. Draft City Ordinance and Revised Findings
B. Executive Summary of Eugene Airport Master Plan Update
C. Vicinity Map
FOR MORE INFORMATION
Staff Contact: Gabe Flock, Senior Planner
Telephone: 541/682-5697
Staff E-Mail: gabriel.flock@ci.eugene.or.us
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ATTACHMENT A
ORDINANCE NO. _________
AN ORDINANCE ADOPTING AN UPDATED EUGENE AIRPORT MASTER
PLAN, A REFINEMENT PLAN OF THE EUGENE-SPRINGFIELD
METROPOLITANAREA GENERAL PLAN (METRO PLAN); ADOPTING A
SEVERABILITY CLAUSE; ANDPROVIDING AN EFFECTIVE DATE.
THE CITY OF EUGENE DOES ORDAIN AS FOLLOWS:
Section 1.
The Eugene Airport Master Plan set forth in Exhibit A attached hereto and
incorporated herein, is hereby adopted to supersede and replace the provisions of the Eugene
Airport Master Plan adopted as a refinement plan to the Transportation Element of the Metro
Plan by Ordinance No. 19730.
Section 2.
Although not part of this Ordinance, the City Council adopts the findings set
forth in the attached Exhibit B in support of this action.
Section 3.
If any section, subsection, sentence, clause, phrase or portion of this
Ordinance is for any reason held invalid or unconstitutional by a court of competent jurisdiction,
such portion shall be deemed a separate, distinct and independent provision and such holding
shall not affect the validity of the remaining portions hereof.
Section 4.
Notwithstanding the provisions of the Eugene Charter of 2002, this
Ordinance shall not become effective until the Lane County Board of Commissioners has taken
action identical to the action taken by the City of Eugene in Section 1 of this ordinance.
Passed by the City Council thisApproved by the Mayor this
_____ day of ________________, 2010_____ day of __________________, 2010
_________________________________ __________________________________
City RecorderMayor
Ordinance - Page 1 of 1
EXHIBIT B
FINDINGS IN SUPPORT OF THE ADOPTION OF
AN UPDATE TO THE EUGENE AIRPORT MASTER PLAN
(RA 10-2 AND PA 10-5284)
Introduction
The original Mahlon Sweet Field Master Plan was initially prepared for the airport in 1979 and
adopted by the City in 1980. A major update of the Eugene Airport Master Plan was then adopted
in 1990, by Lane County and the City of Eugene, to replace the Mahlon Sweet Field Master Plan.
The 1990 Airport Master Plan was developed to respond to problems with runway length and
capacity, and to assure continued improvements to air service that would meet the needs of
Eugene, Lane County and the surrounding areas served by the airport. The 1990 master plan
developed the initial concept for re-configuring the airfield into a parallel runway design which has
since been implemented.
Subsequently, the 1999 Airport Master Plan update was adopted in 2000, to replace the 1990
master plan. It assured that aviation needs within the Airport’s service area would continue to be
met by providing projections for facility demands and financial resources, and included a variety of
recommendations for facility renovation and development. Actions related to the 1999 update
included land use designation changes and rezoning to accommodate expansion of airport uses,
development of a new parallel runway, realignment of Greenhill Road, and a variety of other
airport improvements such as upgrades to the passenger terminal building and parking area
expansion.
The current update to the Eugene Airport Master Plan replaces earlier versions as a refinement to
the Eugene-Springfield Metropolitan Area General Plan (Metro Plan). The purpose of this plan is
to provide guidance regarding specific airport functions including commercial aviation, general
aviation, and airport-related commercial and industrial services associated with the airport. As
stated in the plan goals and objectives, the current master plan update focuses heavily on the
refinement of “landside” components (such as future development of airport-supporting
commercial services) and ways to make the airport more financially self-reliant, but also includes
improvements within the existing airport boundary to accommodate the Eugene Airport’s
projected aviation demands. This update uses 2006 as the base year for data and analytical
purposes and serves as a development guide through the planning horizon of 2026.
Unlike the adoption process for the 1999 Airport Master Plan, the current update does not include
any amendments to the Metro Plan or other locally adopted plans such as the Eugene-Springfield
Transportation System Plan (Transplan). No changes to existing land use designations, zoning, or
adopted policy are proposed. The current update does include recommendations for a variety of
airport improvements that will accommodate the Airport’s needs into the future, some of which
will require further research and analysis to determine the need and timing for any future Metro
Plan amendments or zone changes in the vicinity. Those recommendations are further addressed
in the findings below and it is emphasized that any specific Metro Plan amendments or zone
changes necessary to implement the recommendations of the Eugene Airport Master Plan will
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 1
require additional public process and formal adoption by the affected jurisdiction(s) in the future.
As addressed in the findings below, the current update of the Eugene Airport Master Plan is
consistent with the process and regulations established for airport planning and administered by
the Federal Aviation Administration (FAA) and the Oregon Department of Aviation (ODA). The
master plan update follows the process set forth in FAA Advisory Circular 150-5070-6B, Airport
Master Plans, and complies with the State’s airport planning regulations including applicable
Oregon Revised Statutes (ORS) and Oregon Administrative Rules (OARs). The findings below
further demonstrate that adoption of the Eugene Airport Master Plan update is consistent with
the applicable local approval criteria for adoption as a refinement to the Metro Plan.
The need for joint City and County adoption of the updated master plan stems from the location of
the Eugene Airport outside the City’s urban growth boundary (UGB), but within the Metro Plan
boundary. As a matter of Metro Plan policy, the airport is located outside the UGB to protect aviation
functions from incompatible development, as well as to reduce airport-related impacts on
development within the UGB. Due to this location, land use regulations for the airport property are
under Lane County jurisdiction, and adoption of the refinement plan for this City-owned facility
necessarily includes both governing bodies. The joint adoption is also appropriate as the updated
Eugene Airport Master Plan will replace the existing plan, which was also adopted jointly.
Approval Criteria and Evaluation
Eugene Code (EC) 9.8424 requires that the following criteria (in bold) must be met for adoption of
the updated Eugene Airport Master Plan, as a refinement to the Metro Plan:
(1)The refinement plan amendment is consistent with all of the following:
(a)Statewide Planning Goals;
(b)Applicable provisions of the Metro Plan;
(c)Remaining portions of the refinement plan.
(2)The refinement plan amendment addresses one or more of the following:
(a)An error in the publication of the refinement plan.
(b)New inventory material which relates to a statewide planning goal.
(c)New or amended community policies.
(d)New or amended provisions in federal law or regulation, state statute, state
regulation, statewide planning goal, or state agency land use plan.
(e)A change in circumstances in a substantial manner that was not anticipated at
the time the refinement plan was adopted.
Lane Code (LC) criteria at LC 12.060, for approval of a refinement plan amendment, are also
included below:
The Refinement Plan amendment must be consistent with the relevant statewide
planning goals adopted by the Land Conservation and Development Commission and the
Metro Plan.
The findings below address consistency with the applicable approval criteria in support of
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 2
adoption.
Statewide Planning Goals -- EC 9.8424(1)(a) and LC 12.060
Goal 1 - Citizen Involvement: To develop a citizen involvement program that insures the
opportunity for citizens to be involved in all phases of the planning process.
The City of Eugene and Lane County have acknowledged provisions for citizen involvement that
ensure the opportunity for citizens to be involved in all phases of the planning process and set out
requirements for such involvement. Adoption of this update to the Eugene Airport Master Plan,
as a refinement of the Metro Plan, does not amend the citizen involvement program of either
jurisdiction. The process for reviewing this refinement plan update complies with Goal 1 since it
complies with, and surpasses the requirements of, the citizen involvement provisions.
Beyond the locally required public notice and hearings which are described below, an Airport
Master Plan Advisory Committee was established to assist with the development of the master
plan update, including representatives from a broad cross-section of the community being served
by the Eugene Airport. The 16-member committee met six times over the course of
approximately 2½ years between 2006 and 2009, to review and provide input on the master plan
as it was developed. In addition, four public participation workshops were held during the course
of developing the master plan update.
The City of Eugene and Lane County implement Statewide Planning Goal 1 by requiring that notice
of the proposed adoption be given and public hearings be held prior to adoption. Consideration of
the proposed adoption began with a joint public hearing by the Eugene and Lane County Planning
Commissions. The joint Planning Commission public hearing on the proposed adoption was duly
noticed to the City of Springfield, Lane County, community groups and individuals who have
requested notice. The City also mailed notice of the proposed refinement plan update to the
Department of Land Conservation and Development, in accordance with State statutes. Notice
and opportunity to comment was also provided to the Oregon Department of Transportation
(ODOT), all neighborhood groups officially recognized by the City, and other interested parties
including members of the Eugene Airport Master Plan Advisory Committee. In addition, notice of
the public hearing was published in the Register Guard newspaper. The Eugene City Council and
Lane County Board of Commissioners also held a duly noticed public hearing to consider adoption
of the Eugene Airport Master Plan, prior to final action by each local jurisdiction.
These notice requirements and public hearing processes, in addition to the work of the Airport
Master Plan Advisory Committee, have afforded ample opportunity for public input and
involvement consistent with the State’s citizen involvement provisions required by Goal 1.
Goal 2 - Land Use Planning: To establish a land use planning process and policy framework as a
basis for all decisions and actions related to use of land and to assure an adequate factual base
for such decisions and actions.
Under Goal 2, the Metro Plan serves as the area’s comprehensive, policy framework plan. The
current update to the Eugene Airport Master Plan replaces earlier versions as a refinement to the
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 3
Eugene-Springfield Metropolitan Area General Plan (Metro Plan), and is found to be consistent
with the policy framework already established by the Metro Plan, and related adopted plans
including Transplan. As required by the approval criteria for adoption of this refinement plan
update, findings regarding consistency with the relevant provisions of the Metro Plan are provided
later in this evaluation. The proposed update also follows applicable procedures for coordinated
adoption by the local governing bodies including the City of Eugene and Lane County.
In addition to its status as a component of the overall comprehensive planning framework, the
master plan update is also required to meet FAA requirements for aviation planning and remain
eligible for FAA funding for needed Airport improvements. As in the past, the current master plan
update was developed consistent with the FAA guidelines for Airport master plans and also
accounts for numerous aviation standards relating to airport operations safety, noise and
compatibility with surrounding land uses contained in applicable FAA Federal Aviation Regulations.
The current update is also consistent with state airport-related objectives outlined in the Oregon
Aviation Plan and promulgated through the state’s adopted Aviation System Plan (ASP) and related
statutes and administrative rules.
ORS 836.610, Airports and Landing Fields, requires that local comprehensive plans and land use
regulations accommodate airport zones and uses for certain publicly owned and privately owned
public use airports. Pursuant to OAR 738-090-0030, the Eugene Airport (a.k.a. Mahlon Sweet
Field) is listed as one of the publicly owned airports registered, licensed, or otherwise recognized
by the Oregon Department of Transportation (ODOT) and Oregon Aviation Department (ODA).
For airports so listed, ORS 836.610 requires that comprehensive plans be consistent with the
provisions in ORS 836.616, which establish rules for airport uses and activities, and ORS 836.619,
relating to state rules establishing safety and compatibility standards of land uses near airports.
The Airport Planning Rules contained in OAR 660, Division 13 implement ORS 836.600 through
836.630 and Statewide Planning Goal 12, Transportation. These rules establish parameters for
airport planning to support the vitality and economic function of airports and their host
communities. As stated in OAR 660-013-0010(1):
The policy of the State of Oregon is to encourage and support the continued
operation and vitality of Oregon's airports. These rules are intended to promote a
convenient and economic system of airports in the state and for land use planning
to reduce risks to aircraft operations and nearby land uses.
OAR 660-013-0030 requires that local plans for airport operations and development be consistent
with the state’s adopted ASP. The current master plan update serves as the local aviation plan
consistent with the ASP, under the requirements of ORS 836.600 through 836.630 and applicable
OARs. Beyond consistency with these statutory requirements, the current update complies with
applicable FAA regulations as described in the master plan update.
Under the state’s Transportation Planning Rule, OAR 660-012-0065(1) and (3)(n) permit
expansions or alterations of public use airports on rural lands when such improvements do not
permit service to a larger class of airplanes, and preclude the need to take an exception to
Statewide Planning Goals under the standards outlined in Goal 2. The current master plan update
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 4
does not include any improvements are proposed that would permit service by a larger class of
airplanes and no goal exceptions are required. Conformance with the state’s Transportation
Planning Rule will be further addressed below as part of the findings relative to Goal 12.
Further, as noted elsewhere in this evaluation, adoption of the current master plan update as a
refinement to the Metro Plan remains consistent with, and does not include any additional plan
amendments to the Metro Plan or other locally adopted plans such as Transplan. The following
policy language from the Metro Plan Transportation Element (Policy F.30, Page III-F-12), is
particularly relevant under Goal 2:
Support public investment in the Eugene Airport as a regional facility and provide land use
controls that limit incompatible development within the airport environs. Continue to use
the Eugene Airport Master Plan as the guide for improvements of facilities and services at
the airport.
The current update does include recommendations for a variety of airport improvements that will
accommodate the Airport’s needs into the future, some of which will require further research and
analysis to determine the need and timing for any future Metro Plan amendments or zone
changes in the vicinity. Those recommendations are further addressed in the findings below and it
is emphasized that any specific Metro Plan amendments or zone changes necessary to implement
the recommendations of the Eugene Airport Master Plan will require additional public process and
formal adoption by the affected jurisdiction(s) in the future.
As such, the current master plan update is consistent with Goal 2 as it relates to updating a
refinement to the Metro Plan and does not create internal inconsistencies with the Metro Plan.
Goal 3 - Agricultural Land: To preserve and maintain agricultural lands.
The prior 1999 Airport Master Plan adoption included Metro Plan amendments to re-designate
parcels from Agricultural use on the Metro Plan diagram to Government and Education and to
Airport Reserve. At that time, analysis required by Goal 3 was provided for the affected parcels
which were re-designated to accommodate airport use and no Goal exception was required
pursuant to OAR 660-012-0065(1) and (3)(n).
Adoption of the current master plan update does not include any changes to existing Agricultural
land use designations in the surrounding area, and OAR 660-012-0065(1) and (3)(n) allow airport
improvements contemplated in the master plan update without the need for a Goal exception.
The current master plan update does consider impacts related to noise from airport operations
and possible impacts from surrounding land uses on aviation safety. Existing and proposed airport
improvements are compatible with agricultural uses per standards set forth in OAR 660-013-0040,
et seq; ODOT’s Oregon Airport Land Use Compatibility Guidelines; and relevant Metro Plan policies
and local ordinances.
As such, adoption of the current master plan update is consistent with Goal 3 and will not
otherwise affect Metro Plan compliance with this Goal.
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 5
Goal 4 - Forest Land: To conserve forest lands.
There are no parcels within the airport boundary or surrounding area currently designated as
Forest Land. Also, as found during the prior 1999 Airport Master Plan process, even if forest
resources were feasible in the subject area, such uses could be considered incompatible with
airport operations given height restrictions and air safety standards.
Adoption of the current master plan update does not include any changes to existing Forest Land
use designations, and OAR 660-012-0065(1) and (3)(n) allow airport improvements contemplated
in the master plan update without the need for an exception to Goal 4.
As such, adoption of the current master plan update is consistent with Goal 4 and will not
otherwise affect Metro Plan compliance with this Goal.
Goal 5 - Open Spaces, Scenic and Historic Areas, and Natural Resources: To conserve open space
and protect natural and scenic resources.
Adoption of the current Eugene Airport Master Plan update does not include any plan
amendments that would affect Goal 5 resources. The following administrative rule (OAR 660-023-
0250) is applicable to post-acknowledgement plan amendments concerning Goal 5:
(3) Local governments are not required to apply Goal 5 in consideration of a PAPA
unless the PAPA affects a Goal 5 resource. For purposes of this section, a PAPA
would affect a Goal 5 resource only if:
(a) The PAPA creates or amends a resource list or a portion of an acknowledged
plan or land use regulation adopted in order to protect a significant Goal 5
resource or to address specific requirements of Goal 5;
(b) The PAPA allows new uses that could be conflicting uses with a particular
significant Goal 5 resource site on an acknowledged resource list; or
(c) The PAPA amends an acknowledged UGB and factual information is
submitted demonstrating that a resource site, or the impact areas of such a
site, is included in the amended UGB area.
Adoption of the Eugene Airport Master Plan update as a refinement to the Metro Plan will not
create or amend a list of Goal 5 resources, a plan or a land use regulation adopted in order to
protect a significant Goal 5 resource or to address specific requirements of Goal 5. Adoption of
the master plan update will not allow any new conflicting uses or amend the acknowledged Urban
Growth Boundary. Therefore, adoption does not trigger the need to consider Goal 5 pursuant to
OAR 660-023-0250(3).
The only Lane County Goal 5 waterway identified in the vicinity traverses the boundary of the site
near its southwest corner and is not impacted by any of the recommendations in the master plan
update. To the extent that construction of future airport improvements contemplated in the
master plan update may impact other jurisdictional wetlands in the area, as discussed in Chapter
3, Alternative Plan Concepts, avoidance and minimization alternatives have been considered.
Some of the wetland areas considered in alternative development scenarios for the airport have
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 6
already been filled and mitigated through past permitting. Prior to any development in areas not
already delineated or filled, further wetlands analysis and delineation will be required. If wetlands
are in fact present, then state and federal wetlands regulations and permitting processes will need
to be satisfied before construction, in addition to any related County requirements.
As such, adoption of the current master plan update is consistent with Goal 5 and will not
otherwise affect Metro Plan compliance with this Goal.
Goal 6 - Air, Water and Land Resources Quality: To maintain and improve the quality of the air,
water, and land resources of the state.
Goal 6 addresses waste and process discharges from development, and is aimed at protecting air,
water and land from impacts from those discharges. The proposed refinement plan update does
not amend the metropolitan area’s air, water quality or land resource policies. Future
development recommended in the updated master plan will be required to comply with all local,
state, and federal regulations regarding land, air, and water discharges and emissions. To the
extent that any of the future airport improvements within the updated master plan may create
additional impacts to air, water or land resources, state and local permitting processes will ensure
that discharges do not exceed allowable standards.
The updated Eugene Airport Master Plan otherwise demonstrates that future development can be
reasonably expected to comply with applicable environmental laws. As such, adoption of the
current master plan update is consistent with Goal 6 and will not otherwise affect Metro Plan
compliance with this Goal.
Goal 7 - Areas Subject to Natural Disasters and Hazards: To protect life and property from
natural disasters and hazards.
Goal 7 requires that local government planning programs include provisions to protect people and
property from natural hazards such as floods, landslides, earthquakes and related hazards,
tsunamis and wildfires. The updated Eugene Airport Master Plan is consistent with Goal 7 because
the only identified potential natural hazards are areas within the 100-year floodplain located
inside the airport boundary, and future development proposed must comply with local, state, and
federal regulations pertaining to building and construction relative to floodplain areas.
Limited areas within the airport boundary are in the 100-year floodplain (Zone A). These areas are
associated with drainages carrying runoff to the Clear Lake Channel and Amazon Canal system at
the periphery of the airport within runway protection zones and other areas not scheduled for
immediate development and currently have no operational impacts. If future development were
to impact any areas within the 100-year floodplain, it would be subject to applicable regulatory
standards and local permitting requirements for floodplain development to ensure life and
property is adequately protected.
The airport is too far from the ocean and significant landforms to be subject to natural disasters or
hazards such as landslides or tsunamis. Although much of western Oregon is subject to potential
earthquake hazards, detailed fault locations have not been mapped for the subject area. Future
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 7
construction recommended in the updated master plan will be subject to current earthquake
standards contained in allocable building codes and will therefore pose minimal risk associated
with potential earthquakes. Other potential hazards, such as severe winter storms and wildfires
can also be mitigated at the time of development based on accepted building codes and building
techniques.
As such, adoption of the current master plan update is consistent with Goal 7 and will not
otherwise affect Metro Plan compliance with this Goal.
Goal 8 - Recreational Needs: To satisfy the recreational needs of the citizens of the state and
visitors and, where appropriate, to provide for the siting of necessary recreational facilities
including destination resorts.
The updated Eugene Airport Master Plan is consistent with Goal 8 because there are no public
parks and no land within or near the Eugene airport boundary that are zoned or designated for
park use. The nearest public park, Golden Gardens Park, is located approximately 2.1 miles from
the airport (driving distance to the park is 3.2 miles). The nearest developed public park is Lane
County's Orchard Point Park, located at the northeast edge of Fern Ridge Reservoir, approximately
5.5 miles west of the airport. None of the proposed development at the airport for the 20-year
planning period requires the use or acquisition of publicly owned park or recreation area.
As such, adoption of the current master plan update is consistent with Goal 8 and will not
otherwise affect Metro Plan compliance with this Goal.
Goal 9 - Economic Development: To provide adequate opportunities throughout the state for a
variety of economic activities vital to the health, welfare, and prosperity of Oregon’s citizens.
Statewide Planning Goal 9 calls for the provision of “adequate opportunities throughout the state
for a variety of economic activities vital to the health, welfare, and prosperity of Oregon’s
citizens.” The current update of the Eugene Airport Master Plan is consistent with Goal 9 because
proposed improvements will continue to enhance the viability of the Eugene Airport which
supports the area’s economic vitality as Oregon’s second largest airport. It is identified in the
state’s adopted Aviation System Plan (ASP) as a Level 1 commercial service airport, the most
significant type within the state’s system of public airports. The improvements proposed in the
current master plan update will assure that necessary facilities will be available to support airport
functions through 2026, and consequently the area’s economic development needs.
These economic development needs are identified in two functional refinements to the Metro
Plan, the Metropolitan Industrial Lands Special Study and the Eugene Commercial Lands Study.
The studies provide the currently adopted inventories and policy recommendations relative to the
economic development aspects of industrial and commercial lands within the Eugene UGB,
consistent with Goal 9 and related ORS and OAR requirements. Neither study identified land
within the airport boundary for inclusion in the metro area’s inventory of industrially or
commercially designated lands. This is because both studies focused on sites within the UGB and
the fact that the Government and Education designation allows for limited airport related
industrial and commercial development as a matter of Metro Plan policy. Since adoption of the
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 8
master plan update does not include any land within the UGB, nor any change to existing land use
designations (particularly no conversion of industrial or commercial use to another designation),
no additional analysis is required under the implementing provisions of OAR 660-009-0010.
The current Eugene Airport Master Plan update is otherwise consistent with state policy governing
local government airport regulations. ORS 836.600 states:
In recognition of the importance of the network of airports to the economy of the state
and the safety and recreation of its citizens, the policy of the State of Oregon is to
encourage and support the continued operation and vitality of Oregon’s airports. Such
encouragement and support extends to all commercial and recreational uses and activities
described in ORS 836.616(2).
Because the Metro Plan, the ASP, and state policy acknowledge the airport’s role in meeting the
area’s economic development objectives, the current master plan update is consistent with Goal
9, and approval will not affect Metro Plan compliance with this Goal.
Goal 10 - Housing: To provide for the housing needs of the citizens of the state.
Goal 10 requires that communities plan for and maintain an inventory of buildable residential land
for needed housing units. The administrative rule for Statewide Planning Goal 10 (OAR 660
Division 8) states that “the mix and density of needed housing is determined in the housing needs
projection. Sufficient buildable land shall be designated on the comprehensive plan map to satisfy
housing needs by type and density range as determined in the housing needs projection. The local
buildable lands inventory must document the amount of buildable land in each residential plan
designation.” The comprehensive plan map for the City is the Metro Plan land use diagram. The
1999 Eugene-Springfield Metropolitan Area Residential Lands and Housing Study (RLS) is
acknowledged for compliance with the requirements of Goal 10 and its administrative rule.
The subject property was not included in the adopted RLS supply analysis, and the current Eugene
Airport Master Plan update is consistent with Goal 10 because it does not change the status or
designation of any land currently designated for residential use. Nonetheless, it is notable that the
master plan update thoroughly considers two operational issues that relate to the compatibility of
nearby housing or residential uses and the airport: safety and noise.
The FAA establishes safety rules regarding airspace safety within airport environs through Federal
Aviation Regulation (FAR) Part 77. Part 77 establishes safety zones around runways to preclude
the location of structures or other land uses that would create obstructions or pose undue hazards
to air navigation. The two- and three-dimensional “imaginary surfaces” created in Part 77 are
codified through requirements outlined in OAR 738-0070 and local codes (Lane Code and Eugene
Code). Additional runway protection zones at and near the ends of runways are defined by the
FAA relative to airport design criteria to assure safe and efficient airport operations.
These imaginary surfaces and runway protection zones are described and depicted in the master
plan update. In the event of any extension of runway protection zones or changes to protected
airspace as described in Chapter 6 of the master plan update, additional analysis is necessary to
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 9
determine the extent of any needed changes to local zoning and plan designations. Future
property acquisition and land use designation changes may also be necessary to accommodate
extended runway protection zones in the future. The master plan update recommends a detailed
analysis of existing land use protection measures and what changes may be needed to
accommodate future airport improvements, prior to implementation.
Another compatibility issue between the airport and residential development pertains to noise
impacts. FAA regulations define acceptable noise exposure contours as measured in yearly day-
night average sound levels (DNL). The FAA and other federal agencies establish 65 DNL as the
threshold considered as a significant noise impact. Through OAR 340-035-0045, the State
Department of Environmental Quality (DEQ) regards DNL between 60 and 55 as significant. DEQ
establishes 55 DNL as a threshold for study of planning and zoning measures to limit noise
exposure and recommends specific mitigation when noise impacts are greater than 65 DNL.
As depicted and described in Chapter 6 of the Plan Update, there is a significant decrease in the
amount of single family housing parcels within the 55 DNL contour in 2026, with 117 less affected
parcels than in 2006. Within the 65 DNL contour for 2006, there are four single family home
parcels and one mobile home parcel. This number decreases to three home parcels in 2026. The
reduction in the size of noise contours is primarily due to a change in military aircraft that will
operate at the airport.
As such, adoption of the current master plan update is consistent with Goal 10 and will not affect
Metro Plan compliance with the provision of needed housing pursuant to Goal 10.
Goal 11 - Public Facilities and Services: To plan and develop a timely, orderly and efficient
arrangement of public facilities and services to serve as a framework for urban and rural
development.
The Eugene Airport is currently served by the full range of urban services through previous
exceptions allowing such services to be extended to the airport outside of the UGB and as
provided for in the Metro Plan Public Facilities and Services Element (Policy G.26, Page III-G-12).
Findings in the Metro Plan also confirm that the area of the airport designated Government and
Education on the Metro Plan diagram receives municipal water, wastewater, fire and police
services. Proposed improvements in this area would therefore be served by extension of currently
available key urban services.
The City of Eugene provides wastewater sewer facilities to the airport as well as police and fire
protection. The City’s Airport Rescue and Firefighting station is supplemented by response as
necessary from the Lane Rural Fire Protection District. Other services are provided by other local
and regional utilities. Water service is provided by the Eugene Water and Electric Board (EWEB),
and EWEB and the Emerald People's Utility District both provide electrical service to the airport.
Telecommunications services are provided by Qwest and Lane Council of Governments. Natural
gas is provided by Northwest Natural. On-site storm water runoff is controlled by piped and open
channel drainage systems in the area.
Adoption of the master plan update will not require new services beyond those currently available
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 10
to serve airport and airport-related functions. Furthermore, extension of services for future
development to meet the demands outlined in the master plan update is wholly consistent with
the Metro Plan and prior City determinations.
In addition to the demonstration made through the above findings, an exception from Statewide
Planning Goal 11 is not necessary based upon OAR 660-012-0065(1) and (3)(n). As previously
described, these administrative rules preclude the need to take an exception to Goal 11 (and Goals
3, 4, and 14) if the proposed amendments do not permit service to a larger class of airplane. The
current master plan update does not include any amendments to land use designation or
proposed improvements through the planning horizon of 2026 that would permit service to a
larger class of aircraft than is currently provided.
As such, adoption of the current master plan update is consistent with Goal 11 and will not affect
Metro Plan compliance with the Goal.
Goal 12 - Transportation: To provide and encourage a safe, convenient and economic
transportation system.
Goal 12 is implemented through the Transportation Planning Rule (TPR), as defined in Oregon
Administrative Rule OAR 660-012-0000, et seq. The Eugene-Springfield Metropolitan Area
Transportation Plan (TransPlan) provides the regional policy framework through which the TPR is
implemented at the local level. The TPR states that when land use changes, including amendments
to acknowledged comprehensive plans, will significantly affect an existing or planned
transportation facility, the local government must put in place measures to assure that the
allowed land uses are consistent with the function, capacity and performance standards of those
transportation facilities.
As previously described, adoption of the current master plan update does not include any
amendments to the Metro Plan, adopted land use designations or existing zoning. No changes are
proposed to the functional classification of any roadways serving the airport. Adoption of the
updated refinement plan is not anticipated to reduce any existing transportation facilities below
accepted levels of service or otherwise significantly affect any transportation facilities as outlined
in the TPR. Unlike the prior adoption of amendments to implement the 1999 Airport Master Plan,
the current master plan does not include any new planned transportation facility projects or major
roadway realignments requiring formal plan amendments.
Consistent with OAR 660-012-0065(3)(n), the proposed airport improvements recommended in
the updated master plan do not permit service to a larger class of airplanes. As noted in Chapter 3
(Section 2.2. Design Standards), the Eugene Airport will continue to accommodate the Boeing 737-
300 aircraft which has an FAA Airport Reference Code (ARC) of C-III. The current air carriers at the
Eugene Airport use smaller regional jet aircraft, and although not currently as common as in the
past, the Boeing 737 has long been used as the critical design aircraft. To the extent that future
airport improvements may result in additional motor vehicle traffic impacts, County traffic impact
analysis requirements will be addressed as development and permitting occurs.
As the current master plan update is consistent with OAR 660-012-0065 as well as other OARs
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 11
within the state Transportation Planning Rule and ORS, adoption is consistent with Goal 12 and
will not affect Metro Plan compliance with the Goal.
Goal 13 - Energy Conservation: To conserve energy.
The current master plan update is consistent with Goal 13 because the proposed airport
development will strengthen the substantial investments made in the existing airport, enhance the
viability of air transportation for people and goods proximate to the state’s second largest
population center, and offer an alternative to potentially less fuel-efficient transportation modes.
The recommendations contained in the master plan update will support a vital airport serving the
air cargo, air mail, and commercial and general aviation needs of Eugene, Springfield, Lane County
and the greater Eugene Airport service area. In meeting the updated master plan’s demand
projections and facility capacity requirements, considerable energy will be conserved from export
passengers and air freight to more distant airfields, including Portland International Airport. Using
alternative airports to meet commercial and general aviation demands and transporting air
freight, mail, and cargo to more distant airfields by other transportation modes (i.e., truck or rail)
for shipping would result in potentially less efficient energy use, contrary to the Goal.
There are a number of past and future examples that further illustrate the airport’s ongoing
commitment to energy conservation consistent with this Goal. The airport has in the past and will
continue to strive for ways to reduce energy consumption. As individual projects and
improvements contemplated in the updated Eugene Airport Master Plan are implemented over
time, new technology and opportunities for energy conservation are certainly considered to
reduce cost and impact on the environment.
For example, construction of new facilities at the airport is required to follow Leadership in Energy
and Environmental Design (LEED) guidelines consistent with City’s adopted Sustainable Buildings
Policy. This represents a significant local commitment to the use of “green building” techniques
and energy conservation over time. It is also notable that the airport now has 767 taxiway lights
that are LED. 475 of these were converted from 45 watt quartz lamps to 8 watt LED lights which
will result in substantial energy savings. A cost benefit analysis is planned for replacing current
terminal lighting from T-8 fluorescent lights with LED lights as well. The airport will also be
rehabilitating the passenger breezeway with LED lights for energy conservation. If the FAA
approves more airfield uses for LED lighting in the future, the airport will analyze the use and
conduct a benefit analysis for implementing the technology further.
While Lane Transit District (LTD) bus service is not currently available to the airport, shuttle service
is provided and the airport continues to explore possibilities that would support economically
viable public (or shared private) transportation options to reduce non-renewable energy use and
parking demand at the airport. All airport vehicles running diesel fuel are now operating off of
Bio-5 or Bio-20 fuel and analysis will also be conducted on the feasibility of adding electric vehicle
charging stations to the public parking lots in the future. Bicycle storage lockers are also available
at the airport to accommodate and support alternative transportation options.
Based on these findings and the available information, adoption of the current master plan update
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 12
is consistent with Statewide Planning Goal 13 and will not affect Metro Plan compliance with the
Goal.
Goal 14 - Urbanization: To provide for an orderly and efficient transition from rural to urban
land use.
Goal 14 requires that comprehensive plans provide for orderly and efficient transition from rural
to urban land uses, and the establishment of Urban Growth Boundaries (UGBs) around
incorporated cities to assure compact and efficient urban growth inside the UGB and protection of
rural resources outside of it.
Findings included in the Metro Plan Transportation Element (Page III-F-11) specifically note that he
Eugene Airport is located outside the UGB to protect it from incompatible development as well as to
reduce airport-related impacts on development within the UGB. It also notes that the area of airport
designated government and education on the Metro Plan diagram receives municipal water,
wastewater, fire, and police services. As previously discussed with respect to Goal 11, adoption of
the master plan update will not require new urban services beyond those currently available to
serve airport and airport-related functions. Furthermore, extension of services for future
development to meet the demands outlined in the master plan update is wholly consistent with
the Metro Plan and prior City determinations. Metro Plan Policy F.30 also supports the use of the
Eugene Airport Master Plan as the guide for improvements of facilities and services at the airport.
As previously noted, OAR 660-012-0065(1) and (3)(n) preclude the need to take an exception to
Goal 14 because the proposed improvements do not permit service to a larger class of airplanes.
As such, adoption of the current master plan update is consistent with Goal 14, and will not affect
the Metro Plan compliance with the Goal.
Goal 15 - Willamette River Greenway: To protect, conserve, enhance and maintain the natural,
scenic, historical, agricultural, economic and recreational qualities of lands along the Willamette
River as the Willamette River Greenway.
The Eugene Airport is not within the boundaries of the Willamette River Greenway. Therefore,
Statewide Planning Goal 15 is not relevant, and adoption of the master plan update will not affect
Metro Plan compliance with Goal 15.
Goal 16 through 19 - Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean
Resources:
There are no coastal, ocean, estuarine, or beach and dune resources in proximity to the Eugene
Airport. Therefore, these goals are not relevant and adoption of the master plan update will not
affect compliance with Statewide Planning Goals 16 through 19.
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 13
Metro Plan Consistency -- EC 9.8424(1)(b) and LC 12.060
The Metro Plan serves as the area’s comprehensive, policy framework plan. The current update to
the Eugene Airport Master Plan replaces earlier versions as a refinement to the Metro Plan, and is
found to be consistent with the policy framework already established by the Metro Plan. As
previously discussed, adoption of the updated master plan is supported by a variety of Metro Plan
policies including the following from the Transportation Element (Policy F.30, Page III-F-12):
Support public investment in the Eugene Airport as a regional facility and provide land use
controls that limit incompatible development within the airport environs. Continue to use
the Eugene Airport Master Plan as the guide for improvements of facilities and services at
the airport.
As stated previously, unlike the adoption process for the 1999 Airport Master Plan, the current
update does not include any amendments to the Metro Plan or other locally adopted plans such as
the Eugene-Springfield Transportation System Plan (Transplan). No changes to existing land use
designations, zoning, or adopted policy are proposed. The current update does include
recommendations for a variety of airport improvements that will accommodate the Airport’s
needs into the future, some of which will require further research and analysis to determine the
need and timing for any future Metro Plan amendments or zone changes in the vicinity. It is
emphasized that any specific Metro Plan amendments or zone changes necessary to implement
the recommendations of the updated Eugene Airport Master Plan will require additional public
process and formal adoption by the affected jurisdiction(s) in the future.
Based on the available information and findings above, adoption of the current master plan
update is consistent with the Metro Plan and will not otherwise make the Metro Plan internally
inconsistent, as required.
Refinement Plan Criteria -- EC 9.8424(1)(c) and (2)
Adoption of the current Eugene Airport Master Plan update will entirely replace earlier adopted
versions and there are no remaining portions of prior plans to be addressed under EC 9.8424(1)(c).
The need for adoption of the updated refinement plan is based on federal and state and local
requirements for coordinated aviation planning. Consistent with EC 9.8424(2)(b), new inventory
information contained in the master plan update, concerning airport facilities and projected
demand, supports the recommendations for future improvements to accommodate the Eugene
Airport’s needs through the planning horizon of 2026.
Findings – Eugene Airport Master Plan Update (RA 10-2 and PA 10-5284) Page 14
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