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HomeMy WebLinkAboutOrdinance No. 18686ORDINANCE NO AN - ORDINANCE ADOPTING THE METROPOLITAN AREA GENERAL P LAN AS AN UPDATE of THE EUGENE- SPRINGFIELD-METROPOLITAN ARE 1990 GENERAL PLAN; AND DECLARING AN EMERGENCY". The City Council of the City of Eugene finds that The Eugene - Springfield Metropolitan Area 1990 General Plan, originally adopted- by the Eugene Council on March 27, 1972, has served since that time as the basic land use planning guide for the metropolitan area. Goal 2 of the Statewide Planning Goals and Guidelines, as well as the 1990 Plan provides for periodic re-- evalu - ations and possible updates of such plans. In response to changing circumstances,, and in -an effort to comply with all applicable provisions of Oregon Revised Statutes and the Statewide Planning Goals adopted -by the Lane'Conservation and Development Commission, the City of Eugene ' has , since 19 7 6 , ac- tively participated in an update of the 1990 General Plan. The updated Metropolitan Area 'General Plan is a result of those efforts, On February 11, .1977, th.e Oregon Land, Conservation and Develop- ment Commission acknowledged Eugene as being in compliance with the Statewide Planning Goals within its corporate limits. Excepted from that action was acknowledgment of an urban growth boundary. That exception has been addressed in the updated Metropolitan Area Gen- eral Plan, which also includes text and diagram designations per- taining to the urbani table area outside the City but within the urban growth boundary. In preparing the updated Metropolitan Area General Plan, con-- sideration was given to existing and projected Conditions in order Ordinance - 1 18686 to best meet the needs and goals of the metropolitan area in plan- ning for its future in compliance with applicable Statewide Plan- ning Goals. Hearings have been held on the updated Metropolitan Area Gen- eral Plan before the Planning Commission and this Council, and tes- timony received and considered from neighborhood organizations and other affected groups and individuals. Now, THE CITY of EUGENE DOES ORDAIN AS FOLLOWS Section 1 , Eased upon the above findings , and the findings contained in the Metropolitan -Area Genera. Plan, which are incor- porated herein by reference, and upon the hearing - bef ore this Council, the updated Eugene-Springfield Metropolitan Area General. Plan (Metro Plan) , - including the text, diagrams and maps set forth therein, a copy of which is attached hereto and incorporated herein by reference, is hereby adopted as the me tropo 1 i tan plan for the City of Eugene, replacing the Eugene- Springf ield Metropolitan Area 1990 General Plan which was adopted on March 27, 1972 Section 2, That the matters contained herein concern the pub- lic welfare and safety,. and in order for the Land Conservation. and Development Commission - to consider the City 1 s request for an amended acknowledgment of compliance,' including establishment of an urban growth boundary at the earliest possible time it is necessary for this Ordinance to be irmnediately effective; therefore, an emergency is hereby declared to exist, and this Ordinance shall be effective immediately upon its passage by the City Council and approval by the Mayor. Passed by the City Council this ay of UVA V 1980 C.(�+�wt� Cit Recorder Ordinance - 2 Approved by the Mayor this ay of 1980 ayor Metro A Eugene and Springfield., A 1980, is not attached; it is on file and available by. written request to the Eugene' City Recorder's Office. � r EUGENE- SPRINGFIELD METROPOLITAN AREA GENERAL PLAN August, 1980 Pl an Adopted by: City of Springfield City of Eugene CITY of SPRINGFIELD Mayor and City Council Vern Meyer, Mayor Bob Adams Don Carter Ken E i l er s Gene Hulett John Lively Sandra Rennie Planning Commission Rob Adams, Chairperson Lee Beyer Dick Gassman Len Blackstone Mel Suit Dick Wilcox Roger Wood (Sylvia Hoffman and Nelson Grubbe served on the Springfield Planning Commission through much of its review process of this document.) CITY of EUGENE Mayor and City Council R. A, "Gus" Keller, Mayor Jack Delay Bill Hamel Eric Haws Scott Li eual l en ' Brian ob ie Gretchen Miller Emily Sc h ue Betty Smith Planning Commi ssio'n Robert Barkman, Chairperson James Bernhard Adrienne Lannom Alan Maxwell Eleanor Mulder Randy Thwi.ng James Pearson (John MacKinnon, Jr., chaired the Eugene Planning Commission through much of its review .of this document. His term. expired in December 1979.) Sb8b Chapter I INTRODUCTION A, Preface The Metropolitan Area General Plan is the first update of the Eugene- Springfield Area 1990 General Plan. The 1990 Plan, adopted in 1972, provided that a major update of the General Plan should be ' initiated every five years, This reflects the fact that a' General Plan must be adaptable to the changing needs and c of the community if it is to retain its validity and usefulness. Therefore, this Metropolitan Area General Plan is not an entirely new product, but rather has evolved from and reflects needed changes to� the 1990 General Plan'. B. Purpose The Eugene - Springfield Metropolitan Area General P l a n is the official long -range general plan (publ policy document) of metropolitan Lane County and the cities . of Eugene and S p r i n g f i e l d . Its p o l i c i e s and land use designations are intended to apply only within the area under the Jurisdiction of the plan. The plan sets forth general planning po and land use allocations and serves as the basis for the coordinated devel opment of programs - ,concern i ng the use and conservation of physical resources, furtherance of assets, and development or redevelopment of the metropolitan area, The Plan is intended to designate a sufficient amount of urbanizable land to accommodate the need for further' urban expansion, taking into account the growth policy of the area for the project population of 293,700 (which is projected by the year 2000) . More spec i f i cal 1 y, the General Plan provides the overall framework for the following planning functions. The Plan Z , Gu i des all government and agencies in the metropolitan area in developing and implementing their own activities which rel ate to the public planning process, 2. Establishes the policy basis for a general, coordinated long - -range approach among affected agencies for the provision of the f a c i l i t i e s and services needed in the metropolitan area. 3. Makes planning information available to assist citizens to better understand the basis for public and private pl ann.ing decisions and encourages their participation in the planning process, 4. Provides the - public with general guidelines for i n d i v i d u a l planning d e c i s i o n s . Reference to supplemental planning documents of a more localized scope, including neighborhood refinement plans, is advisable when applying the Plan to s p e c i f i c -parcels of land or i n d i v i d u a l tax lots. 5. Assists citizens in measuring the progress of the community and its officials in achieving the Plan's goals and objectives. I -1 1868E 60 Provi - des continuity in the planning process over an extended period of time. 7. Establishes a means for consistent and coordinated planning d e c i s i o n s by all public agencies and jurisdictional' lines . 8. Serves as a general planning framework to be augmented as needed by more det a i l planning programs to meet the specific needs of the various local governments. 9. Provides , a basis for public decisions for specific issues when it is determined the Plan, without refinement, contains a sufficient level of information and po -1 icy direction. 10. Recognizes the social and economic effects of physical planning policies and decisions. C. Plan Contents As indicated in the Purpose section, the Metropolitan Area General Plan provides the overall policy framework for planning in this community. The five chapters of the General Plan include: this Introduction; Fundamental Princi - pl es; Specific Elements; and Plan Review, Amendment, Refinement and Jurisdictional Responsibility. The Plan glossary is in Chapter V. Fundamental -Principles: Chapter II_ sets forth the basic concepts of the Plan, including georgraph i c al growth management and a compact urban service area. It is intended to tie the specific elements in Chapter III together into a comprehensive public policy document. Components of the Fundamental Principles chapter include Metropolitan Goals ; Growth Management and the Urban Service Area, Eugene and Springfield Jurisdictional Responsibility, Urban and Urbanizable Land, and the Plan Diagram. Specific Elements: Chapter III is composed of specific elements including within each an introductory text, appl icabl,e goal -s from' Chapter II and f'i nd i ngs , objectives., and policies. The specific el ements are : Residential Land Use and .Housing; Economy; Environmental Resources; Wi 11 amette River Greenway, . River Corridors and Waterways; Environmental Design; Transpor, tation; Public Utilities, Services and Facilities;. Parks and Recreation Facilities; Historic Preservation; Energy; and Citizen Involvement, Plan Review, Amendment, and Refinement: Chapter IV of the Plan establishes the procedures for insuring that t e Pl an retains its applicability to changing circumstances in the community. It includes procedures and time schedules for reviewing and updating the Plan, provides procedures for amending the Plan and resolving conflicts, and recognizes that refinements w i l l be necessary where conflicts exist, I -2 ►8686:. Gl oss Chapter v, - The Glossary , includes terms used i n the P an t at might otherwise be unclear or mi s interpreted. D. Use of the Plan The Metropolitan Area General Plan is. a po 1 icy document intended to provide the three jurisdictions and other agencies and districts with a coordinated guide, for change over a long period of time. The major com- ponents of t h i s p o l i c y document are: the written text which includes findings, goals, objectives, and policies; the Plan diagram and other supporting materials. A finding is a factual statement resulting from investigation, analysis or observation. An assumption is a, position, projection or conclusion considered to be reasonable. Assumptions differ from findings in that they are not a known f act . A goal is a broad statement of philosophy that describes the hopes of the people of the cdmmun i ty for the future of the community. A goal may never be completely attainable but is used as a point to strive for, An objective is an attainable target that the community attempts to reach in striving to meet a goal. An objective may also be considered as an intermediate point that will help-fulfill th -e overall goal. A policy is a statement adopted as part of the .Plan to provide a consistent course of action, moving the community.towards attainment of its goals . The Plan diagram is a graphic depiction of: (1) the broad allocation of projected land use needs in the metropolitan area, and (2) goal s, objectives, and policies embodied in the -text of the Plan. Some of the information shown on the diagram includes land use categories, urban growth boundaries, major transportation corridors, and Willamette River Greenway boundaries. The revised goals, objectives, and policies contained in this Plan are not presented in any particular order of importance. The respective juris- dictions recognize that- there are apparent conflicts and inconsistencies between and among some goals, objectives, and policies. When making decisions based on the Plan, not all of the goals, objectives, and policies can be met-to the same degree in every instance. Use of the Plan requires a "balancing" of its various components on a case -by -case basis as well as selection of those goals, objectives, and policies most pertinent to the issue at hand. I -3 18686 The policies which follow in the Plan vary in their scope and impli- cations. Some call for immediate action; others call for lengthy study aimed at developing more specific policies later on; and still others _ suggest or take the form of policy statements. The common theme of all the policies is (upon Plan adoption) acceptance of them as suitable approaches toward problem-solving, and goal realization. other val id approaches may ex i st - an may at any time be put into the P l an th - rough amendment procedures. Adoption of the Plan does not nec.essar i ly commit the Jurisdictions to immediately carry out each policy to the letter, but does put them on record as having recognized the validity of the policies and the decisions or actions they imply. The Jurisdictions can then begin to carry out the policies to the best of their ability, given sufficient time and resources. In addition, it is. important to recogn i ze , th at the written text of the Plan takes precedence over the Pl N diagram where apparent conflicts or i ncons i stenc i e-s exist. The Plan diagram is a generalized map which is intended to graphically reflect the broad goals, objectives, and policies. As such, it cannot be used independent from or take precedence over the written portion of the Plan. The degree to which the General Plan provides sufficient detail to meet the needs of each jurisdiction will have to be determined by the respective j ur i sd i ct ions . And where conflicts exist among the General Plan, refinement plans., and existing zoning, each jurisdiction will have to establish its own schedule for bringing the zoning and ref i n.ement plans into conformance with the General Plan. It is recognized that the needs, priorities and resources vary with each jurisdiction and that the methods and timing used to implement the Plan will also vary. E. Relationship to other Plans and Policies While the Metropolitan Area General Plan is the basic guiding land use policy document, it is not the only such document. As indicated in the Purpose section above (#8),, the General Plan is a framework plan and it is important that it be augmented by more detailed refinement plans, programs, and po -1 i c i es . Due to budget limits and other responsibilities, all such plans, programs, and pol 'ic ies cannot be pursued simultaneously. Normally, however, those of a metropolitan- wide scale should receive priority status. Refinements to the General Plan can include specific neighborhood or community plans; special purpose. or functional plans such as water, sewer, or transportation plans; or planning related policies. In all cases, the General Plan is the guiding document, and refinement plans and policies must be consistent with the General Plan. Should inconsistencies occur, the General Plan is the pre- vailing policy document. The diagram on the next page indicates the relationship 'of the Metropo l i t an' Area General Plan to refine- ment plans and p o l i c i e s . I -4 Neighborhood and Community Refinement Plans Statewide Planninq Goals Metropolitan Area General Plan Special Purpose/ Functional Plans Planning Related Policies Refinement plans and policies- adopted subsequent to the 1990 General Plan remain in effect where they do not conflict with the updated Metro- politan General Plan. In cases of conflict, the Metropolitan Plan w i l l prevail. The Springfield Community Plan (Part I) and the Gateway Park Development Plan and Standards are completely superseded by th i s plan for lands i'ns i de the City limits of Spring_ field and for lands annexed to the of Spr i ngf i el.d . The North Springfield Community Plan will remain in effect for lands outside the City of Springfield. Refinement Plans will be updated, where conflicts exist,, to conform to the policies and land use desig- nations of this Plan. Ref i nement plans and policies adopted after the adoption of the 1990 General Plan include . Special Purpose /Functional Plans r 1. Mahlon Sweet Field (Airport) Master Plan; adopted .1980, Eugene City Council; Eugene 2. Metropolitan B i.keway Master Plan; Lane. County, Eugene, Spring- field 3. Eugene Springfield Area 2000 Transportation Plan; Lane County, Eugene, Springfield 4. Central Lane Parks Plan; Lane County 5. Solid Taste Management Plan; Lane County 5. Housing Plan for Lane County; Lane County 7. Eugene-Springfield Metropolitan Area waste Treatment Management Alternatives Report (208 "Facilities" Plan) Planning Related Policies 1. Eugene Community Goals and Policies, 1974; Revised 1979, Eugene 2. Housing Dispersal Policy Plan; Eugene Neighborhood Refinement /Community Plans 1. North Springfield Community Plan (Part I) ; Lane County, Springfield 2. Laurel Hill Neighborhood Plan; Eugene 3. South Hills Study; Eugene 4. Bethel - Danebo Neighborhood Plan, including the West Eugene Industrial Area; Eugene 5. Downtown Westside Study; Eugene 6. Urban Renewal Plan; Eugene 7. Goodpasture Island Study; Eugene 8. Wh i teaker Refinement Plan; Eugene 1-5 f8686 9 . We st s i de Neighborhood Quality Project Plan; Eugene 10. Springfield Downtown Plan; Springfield 11. Willamette Greenway Plans; Lane County, Eugene In 'addition to refinement plans adopted subsequent to the 1990 General Plan, there were several plans which preceded the 1990 General Plan. These plans, listed below, remain in effect. (where they do not conflict with the General Plan) until they are superseded by future refinements. They are: 1. River Road Development Plan, 1966; Lane County 2. Santa Clara Community Plan,, 1969; Lane County 3. Wi l l akenzi a Plan, 1969; Lane County F. Relationship to County Subarea Plans The boundaries of the Metropolitan Area General Plan are adjacent to , the boundaries of the Lane County subarea plans that surround 'the Eugene- Springfield metropolitan area. There is no overlap between the boundaries of the Metropolitan Area General Plan and any of the subarea plans.* Adjustments to boundaries may occur in the future so that areas previously part of one plan are covered under another pl -an. These adjustments may occur using the plan review and amendment procedures described in Chapter IV, Go - Relationship to Statewide Planning 'Goals As required by ' st ate law, the Metropolitan Area General Plan has been developed in accordance with the statewide planning goals adopted by the state Land Conservation and Development Commission and published in April, 1977. These goals provide the standards and set the framework for the planning programs of all governmental agencies and bodies in the metropolitan area. The Metropolitan Area General Plan addresses each of the LCDC goals (as well as local goals) and contains objectives and policies aimed at com- pliance with the LCDC Goals. H. Relationship to the Technical S - uppl ement and Working Papers The Metropolitan Area General Plan was based on a work program approved by the Metropolitan Plan Policy Committee and by the governing bodies of Eugene, Springfield, and Lane County after review and hearings by the respective planning commissions and MAPAC. Based on this work program, an inventory, review, and analysis of a number of relevant elements was conducted. These included population projections, land use and-housing (supply and demand) , public facilities and utilities, and natural assets and constraints. * Will require amendment to some County subarea plans I -6 r r From .this inventory, review, and analysis, working papers were developed which describe the relevant issues and factors concerning each subject, and from these analyses, findings were drawn.. These findings, in turn, formed an important share of the basis' as i s' for updating the goals, objectives, an - d recommendations of each of the 1990 General lan elements. In a d d i t i o n , several new or expanded elements were developed from working papers, partly to comply with LCDC Goals. The technical supplement, a product of the working papers and the various reports prepared during the update of the Plan diagram, is available under separate cover. It was written for use by those who wish more information on the technical aspects of the Plan and its, preparation. It can also be of assistance for in- -depth analysis of metropolitan planning issues.. I. General Finding-s and Assumptions U n l i k e findings associated with a single specific element or section of the ' P1 an, the following general findings and assumptions relate to the entire Plan. They are listed in the Introduction because of their general application. General Assumptions A population of 293,700 is expected to. reside in. the Metropolitan area by the year 9000 if the present trends continue. This - is a 53 percent increase from the 1977 population of 184, 300. Since this Plan is designated to accommodate the expected population, rather than remain static until 2000, it can be adjusted perio- dically as changes in population trends are detected . 1 2. Based on recent trends, the rate of population growth and the rate of i n- mi Brat i are projected to decrease. 3. In addition to population growth, increasing household formation rates (i . e . , decreasing average household size) will increase the demand for housing. 40 In addition to population growth, increasing labor force participation rates will increase the resident labor force, thereby increasing the demand for employment opportunities. 5. The metropolitan area will experience continuing growth of the local economy. * The working papers are on file for pibl is use in the Springfield, Lane County, and Eugene planning offices, and at the Lane Council of Governments . I -7 I � ! s r V 6 . Based on project of recent population and economi trends, there will be sufficient land within the projected urban service area depicted on the Plan diagram in Chapter II. to ensure reasonable choices in the market place for urban needs through the planning period, i.e., a metropo i tan population of 293,700, provided p e r i o d i c updates of the Plan are conducted and the area designated for urbani- zation on the diagram is updated to assure that the supply remains - responsive to demand. 7. Public policies controlling the Eugene-Springfield metropolitan area's growth pattern will continue to be effective. For example, compact urban growth wi l .l continue to enhance the opportunity to preserve important natural assets such as rural open space and agri- cultural land. 8. Additional urban development will take place within incorporated cities. General Findings 1. The average annual growth rate in the metro area decreased from 3.1 percent in the-196 to 2.6 percent between 1970 and This is the lowest it has been since 1930. 2. order metropo l i - tan growth cannot be accomplished without coordination of public investments., -Such coordination can be enhanced through scheduling of priorities. 3. When urban growth is allowed to occur without consideration for the physical characteristics of the land, it creates problems that are then difficult to solve. 4. The development and implementation of planning policies have social and economic imp acts . 5. Financial and taxing inequities are generated when urban develop- ment is allowed to occur in unincorporated areas on the periphery of Springfield and Eugene because many residents of such develop- ments are at least partially dependent on streets, parks, and other pond i rect fee facilities and services provided by those cities and financed from their revenues. i r w CHAPTFR TT FUNDAMENTAL PRINCIPLES There are three themes - th at are basic or fundamental to the entire Metro- politan General Plan. They are implicitly included in the various indi- dividual Plan components. These fundamental principle)' are: 1. The Plan is a long -range policy document providing the framework within which more detailed refinement plans are prepared. This concept is discussed in more detail in Section E of the Introduction (Chapter I) . 2. To be meaningful , the Pl an requires cooperation by al 1 general purpose, special district, and special function agencies in the community . This reflects its comprehen- sive nature encompassing physical land use, social , and economic implications for the metropolitan area. Examples where cooperation are essential include planning and implementation of a transportation system, development of a metropolitan-wide energy plan, metropolitan-wide analysis and resolution of .certain housing .issues, and planning for areas outside the urban growth boundary and within the Plan. 3. The Plan and most of its elements are oriented to and require that urban development occur in a compact con- figuration within a prescribed urban service area. 'Elaboration of this principle is treated in Sections B C, D, and E of this chapter and the "Public U t i l i t i e s , Services and Facilities" element in chapter 'I I I . While the goals listed i n the first section of this chapter are also stated in connection with individual Plan elements, they are central to the entire Plan so they are included here as well in the order they appear in the Plan. II -1 A. Metropolitan Goals Growth Management and the Urban Service Area Use urban, urban i zab 1 e and rural lands efficiently and in the public interest. Encourage orderly and efficient conversion of land from rural to urban uses in response to urban needs, taking into account metro - pol itan and statewide goals. Protect rural lands best suited for non -urban uses from incom- patible urban encroachment. Residential Land Use and Housing Provide viable residential communities so all residents can choose sound, affordable housing that meets individual ' needs. Economy Broaden, improve, and diversify the metropolitan economy while maintaining or enhancing the environment. - Environmental Resources Protect valuable natural resources and encourage their wise manage- ment, proper use/ and reuse,' reflecting their special natural assets. Maintain a variety of open spaces within and on the fringe of the developing area. Protect life and property from the effects of natural hazards.- Provi de a healthy and attractive environment for the metropolitan population. Willamette River Greenway, River Corridors, and Waterways Protect , conserve and enhance the natural, scenic , environmental and economic qualities , of river and waterway corridors. Environmental Design Secure a safe, clean, and comfortable environment which is satis- fying to the mind and senses. II -A -1 1868b Encourage the development of the natural, social, and economic environment in a manner that is harmonious with our natural setting and maintains and enhances our quality of life. Create and preserve desirable and distinctive qualities in local and neighborhood areas. r Transportation Provide for a more balanced transportation system to give mobility to all segments of the community. Serve the existing and future arrangement of land uses with efficient, safe, convenient, and economic transportation systems for the movement of people and goods. r' Public Utilities, Services, and Facilities . Provide and maintain public utilities, services, and facilities in an orderly and efficient manner . Parks and Recreation Facilities Provide a variety of parks and recreation facilities to serve the diverse needs of the community's citizens. Historic Preservation Preserve reminders of our -or -i g i n and historic development as links between 'past, present, and future generations. Energy Maximize the conservation and efficient utilization of all types of energy. Develop environmentally acceptable energy resource alternatives. Citizen Involvement Continue to develop, maintain, and refine programs and procedures that maxim i ze the opportunity for' meaningful , ongoing citizen involvement in the community's planning and planning implementa- tion processes consistent with mandatory statewide planning standards. Plan Review, Amendment, Refinement, and Jurisdictional Responsibility Ensure that the Metropolitan Area General Plan is responsive to the changing conditions, needs, and attitudes of the community, and is fully integrated with surrounding Subarea Plans. II -A -2 !8686 B . 'Growth Management and the Urban Service Area To effectively control the potential for urban sprawl and scattered urbanization,, compact growth and the urban service area concept are, and will remain, the primary growth management techniques for directing geographic patterns of urbanization in the community. In general, this means the filling in of vacant and underutilized 1 ands , as well as redevelopment inside the urban growth boundary. Outward. expansion of the projected urban service area, as defined in the glossary, will occur only when it is proven necessary according to the recom- mended policies set forth in this Plan, particularly in this element. Find innc, 1. Many metropolitan areas within the United States that have not implemented geographic - growth management techniques suffer from scattered or 1 -frog urban growth that leaves vacant and under- utilized land in its path and encourages isolated residential develop- ments far from metropolitan centers. Until adoption of the 1990 Plan's urban service area concept, portions of this metropolitan area were characterized by these phenomena. 2. Beneficial results of compact urban growth include: a. Use of most vacant left-over parcels where uti 1 iti es assessed to abutting property owners are already in place. b. Protection of productive forest lands, agricultural lands, and open space from premature urban development. c. More efficient use of limited fuel energy resources and greater use of bicycle and pedestrian facilities due to less miles of streets and less auto dependence than otherwi would be required, d. Decreased acreage of leap-frogged vacant land, thus resulting ' in more efficient and less costly provision and use of ut i l - i ties, roads, and public services such as fire protection, e. Greater urban transit efficiency by providing ahigher level of service for a given investment in transit equipment and the like. 3. The disadvantages of a too compact urban growth boundary can be a disproportionately greater increase in the value of vacant land within the Eugene - Springfield area which would contribute to higher housing prices. 4�6 Periodic evaluation of land use needs compared to land supply provides a basis for orderly and non - excessive conversion of rural land to urbanizable land, II -B -1 J a . Prior to the late 1960 'Eugene and Springfield had no growth management policy and, therefore, growth patterns were generally dictated by natural physical characteristics. 6. Mandatory statewide planning standards (goals) adopted by the Land Conservation and Development Commission require that all communities in the state establish urban boundaries to identify and separate urbanizable land from rural land. 7. Between 1970 and 1978, S p r i n g f i e l d ' s population increased, about seven percent a year and Eugene's about four percent a year, but unincor- porated portions of the metro area experienced a population decline. Only about ten percent of the total increase in the population was related to annexations,,' This indicates that growth is occurring in, cities which is consistent with the urban service area concept and limitations on urban sc atterat ion into unincorporated areas as first embodied in the 1990 Plan, 8. In addition to Finding 7 above, evidence that the urban service area is an effective growth management tool include the following: a. Consistent reduction over time of vacant land within the urban service area. b. Reduction of vacant residential - -zoned land in Springfield and Eugene . c. Greater value of vacant land within Springfield and Eugene than similar land outside incorporated areas, but within the projected urban service area. d. Increase since 1970 of the proportionate share of res i den - tial bui -lding permits issued within city limits. 9 . , Reduction in the use of zoning provisions and regulatory processes that favor single -- family detached dwellings on standard -sized parcels would increase the opportunity to realize higher net residential densities than are presently occurring, particularly. in newly developing areas. Goals I . Use urban, urbanizable, and rural lands efficiently and in the public interest. 2.. Encourage orderly and efficient conversion of land from rural to urban uses in response to urban needs, taking into account metro- politan and statewide goals., 3. protect rural lands best suited for non - -urban uses from incompat- ible urban encroachment. II -B -2- 18686 nhiort ivoc I . Continue to minimize urban sc atter at ion and sprawl by encouraging compact growth and sequential development. 2. Insure that land supply is kept in proper relationship to land use needs. 3. Conserve those lands needed to efficiently accommodate expected urban growth. 4. Protect rural land and open space from premature urbanization. 5. When necessary to meet urban needs,. utilize the least productive agricultural lands for needed expansion. 6. Encourage new and maintain existing rural land uses where pro- ductive or beneficial out -side the urban growth boundary. 7. Shape and plan for a compact urban growth form to provide for growth while preserving the special character of the metropolitan area. 8. Encourage development of suitable vacant, underdeveloped, and redevelopabl e land where services are available, thus capitalizing on public expenditures already made for - these services. 910 Protect life and property from natural hazards and natural disasters. to . Allow smaller outlying communities the opportunity to plan for their own futures without being engulfed by unlimited outward expansion - of the metropolitan area. and iriac 1. The urban service- area concept and sequential development shall continue to be implemented as an essential means to achieve compact urban growth. The planning, programming, and financing for provision of all urban services shall be concentrated inside the projected urban sery ice area. 2. Control of location, timing, and financing of the major public investments that directly influence the growth form of the metropolitan area shall be planned and coordinated on a .metropolitan-wide basis, 3. Lane County - shall discourage urban development in urban i zabl e and rural areas and encourage compact development of outlying communities. I I -B--3 18686 4 . To maintain the existing physical autonomy of the smaller outlying communities, urban development on agriculatural and rural lands beyond the projected urban service boundary shall be restricted and based on at least the following criteria: a. Preservation and conservation of natural resources. b. Conformity with the policies and provisions of the various County subarea plans that border the metropolitan area.. c . I Conformance with applicable mandatory statewide planning goals., 5. outlying .communities close to Springfield and Eugene shall be encouraged to develop plans and programs in support of compact urban development. 6. Conversion of rural and rural agriculatural land to urbanizable land through plan amendments expanding the projected urban service area shall be consistent with mandatory statewide planning standards (goals). 7. Land within the projected urban service area may be converted from urbanizable to urban only through annexation to a city when it is found that: a. A minimum level of key urban facilities and services can be provided to the area in an orderly and efficient manner. They consist of sanitary sewers; solid waste management; water- service; fire protection; p o l i c e protection; parks and recre at i on pro-grams; electric service; land use controls; communication facilities; and public schools on a district -wide basis (in other words, not necessarily within walking distance of al I students served) . Paved street's with adequate provision for storm water run and pedestrian travel, meeting applicable local policies, are important -- particularly in new developments and along existing streets heavily used by pedestri - ans. b. There will be a logical area and time within which to deliver urban services and facilities. Conversion of urbanizable land to urban shall also be consistent with mandatory statewide planning standards (goals),, 8. A full range of key urban facilities and services shall be provided to urban areas, according to demonstrated need and budgetary priorities. I I --B -4 , + They include, in addition to the minimum level of key urban facilities and services, urban public transit, natural gas, storm drainage facilities, street lighting, libraries, local parks, local recreation facilities and services, and health services. 9. Regulatory and fiscal incentives that direct the geographic allocation of growth and density according to adopted plans and policies shall be examined and, when practical, adopted. 10. To accomplish the fundamental principle of compact urban growth addressed in the text and on the diagram, overall metropolitan-wide density of new residential construction, but not necessarily each project, shall average approximately six dwelling units per gross acre over the planning period. 11. As an early priority, or in any event before the two -- and -one -half -year mid-way review of the Metro Plan, Eugene, Springfield, and Lane County shall review the need to conduct a Growth Rate Management Feasibility Study within the context of state programs and po i c i es . The study shall at least include analysis of social, economic, and legal issues as well as experiences of other communities. 12. Based upon direction provided in Policies 3, 7, and to of this section, any development taking place in an urban izabl a area shall be designed to the development standards of the city which would be r e s p o n s i b l e for eventually providing a minimum level of key urban services to the area. It shall also be designed in a manner that will facilitate its potential conveys ion to urban uses .. An example includes the use of lot designs that permit the easy creation of additional lots in the f ut-ure . 13. The lower Mohawk Valley has been identified as a possible area of expansion for the City of Springfield. Subsequent to the adoption of this Pl an , but in as timely a mariner as possible, a study shall be accomplished to determine the economic feasibility of expansion into the valley. This study shall evaluate all pertinent costs, including utilities, roads, development prohibitions (such as flood plains) , and the like. The results of this study should be compared with similar data concerning the Natron - Jasper area. 14 : The L CC basin is within the jurisdiction of the Metropolitan P l a n and has been identified as a possible area of expansion to the urban area at some time in the future. The next major update should include specific study of this basin to determine feasibility of urban expansion into this area. Prior to the next update, a specific study of this basin shall be-conducted to determine feasibility of urban expansion into this area and 'to prepare detailed comparative cost estimates with other possible areas of urban expansion, Note: For other related policy discussion, see Public Utilities, Services, and Facilities Element III -G. II -B -5 18686 C. Eugene and Springfield Jurisdictional Responsibility Largely in recognition of existing city limits and areas served by Eugene and Springfield with municipal services, it is appropriate to assume the division of responsibility between the two cities is and will continue to be the Interstate 5 Highway with the exception of the Glenwood area. Bath c *ties serve that area although sewers are provided by Eugene. There is no school located in Glenwood. Eugene has already annexed portions of the area where it provides most of the minimum key services now required. Nevertheless, the two cities need to decide who will be ultimately respon s ibl e for-providing key urban services to additional urban development in Glenwood. (See Chapter IV for further discussion of jurisdictional boundary.) (See Page III -G -6 far .pol icy relating to the Glenwood area.) II -C-1 r6mq, D . Urban and Urban i zab l e Land Urban and Urban i zabl e Land This section addresses the need to allow for the orderly and economic extension of public services, the need to provide an orderly conversion of urbanizable to urban land, and the need to provide flexibility for market forces to operate in order to maintain affordable housing choices. For the definitions of urban and urbanizable lands as well as rural lands and the urban growth boundary as used in this section, refer to the Plan Glossary. The undeveloped (urbanizable) area within the urban growth boundary, separating urban and urbanizable land from rural land, has been carefully calculated to include an adequate s.uppl y -to meet demand for a projected population of 293,700 through the end of the planning period (2000) with the addition of the Willow Creek Basin, approximately 25,000 -- 30,000 additional people can be accommodated beyond the projected population for the year 2000. Pages J I -E -1 through II-E-2 deal with the phasing of Willow Creek. However, unless the community consciously decides to limit future expansions of the urban growth boundary, one of several ways to accommodate growth, that boundary will be expanded in future plan updates so that before 2000 it will include more urbanizable area reflecting future population and employment needs than that now depicted' on the diagram. Accordingly, periodic updates of land use needs and revision of the urban growth boundary to reflect extensions of the planning period will ensure that adequate surplus urbanizable land is always available. The key to addressing the needs stated at the beginning of this subsection is not so much the establishment of an urban growth boundary, but maintaining an adequate and reasonable supply of available undeveloped land at any point in time. The "adequate" and "reasonable" tests are the key to the related phasing and surplus land issues. In order to maintain an "adequate" supply of available surplus land to allow development to occur, annexation must take place in advance of demand in order to allow for the provision of public capital improvements, such as sewer trunk lines, arterial streets, and water trunk lines. Most capital improvement pro- grams are "middle-range" type plans geared three to six years into the future. The time between annexation and the point o f - f i n i s h e d construction usually involves several steps: (1) the actual annexation and rezon i ng , of the land (with accompanying public hearing processes, including Boundary Commission approval); (2) filing and approval of a subdivision or planned unit develop- ment (with accompanying public hearing processes ; (3) extension of public capital improvements tin accordance with programming and funding availability) ; and (4) construction of the private development (including local extension of streets, sidewalks, sewers, water el ectri.c i ty, and construction of dwell- ing units or businesses). The time period between initiating annexation and sale of a home or opening 'of a business varies, but can easily take from two to six years. II -D -1 r � � I 1 ■ � Large scale and timely annexations of undeveloped and underdeveloped areas should be encouraged to enhance the opportunity for compact urban growth, an efficient land use pattern, and a well supporting arterial street system, The approach as expressed in the following graphic is to allow the cities to develop annexation programs which will ensure a six- to ten --year surplus of 1 and. Such a range will allow the maintenance of an adequate surplus of land at any point in time. The six- to ten --year surplus is suggested as a reasonable range which will not only allow for the conversion of urb an i zab 1 e and to urban land through annexation, but will allow the cities the opportunity and f l e x i - b i l i t y to plan for and provide urban services on a large scale. The six year minimum w i l l allow the cities and other providers of urban services to develop coordinated capital improvement programs in accordance with the adopted general plan. Such coordinated capital improvement programs can and should be c l o s e l y related to implementation of annexation plans. J 1977 •:1 1985 1990 1995 2000 Note: Plan w i l l be updated before undeveloped surplus urban l ands are. exhausted. II-D-2 Urban Growth Boundary r r ■ ■. The six- to ten -year surpl u -s should be based on the amount of development. over the previous three years. Improved monitoring techniques made possible by the geographic data system should al l.ow such monitoring to occur. The monitoring information should be provided on a jurisdictional basis and on the metropolitan level . In summary, the cities should continually monitor the conversion of urban - i zabl e land to urban and pursue active annexation programs based on local policies and applicable provisions of this Plan including, for example: 1. Orderly economic provision of public facilities and services (maintenance and development of capital improvement programs); 2. Availability of sufficient land to ensure a supply responsive to demand; 3. Compact urban growth, including development within the current urban service area before conversion. of urbanizable lands to urban; and 4. Cooperation with other utilities and providers of urban services to ensure - coordination with their respective capital improvement programs.. - Geographic Phasing of Santa Clara, Willow Creek, and East Thurston There are three areas within the urban growth boundary which r'equ i re special consideration for geographic phasing from urbanizabl e to urban land. The first two areas, Santa Clara and willow Creek, are of particular concern to the City of Eugene; the third area, East Thurston, is of particular concern to the City of Springfield. These areas have the following in common: 1. They are appropriate for ultimate conversion from urban i zabl e to urban land upon annexation to a. city. 2. They are designated primarily for low - density residential use. 30 They lack the minimum level of key urban services and those services are not scheduled for at least the next five years. 4. They are not needed to meet metropolitan low-den sity residential projected needs for at least the next five years. 5 . They represent logical areas for providing public utilities, faci l i -- ties, and services due to either an existing level of unincorporated development (as in Santa Clara) or natural drainage patterns (as in Willow Creek and East Thurston) . II -D-3 Vil J 6 . They should be included immediately so public utility, facility, and service planning can begin; leading to extension of services to those areas in an orderly and economic fashion in the long term. For these reasons, these areas are included within the urban growth boundary realizing they are not needed in the near term future for urban development, but may be needed in the latter part of the planning period to satisfy metropolitan low- density residential needs. Willow Creek is the area south of West 11th Avenue, west of Bertelsen Road, extending up to the natural r i dgel i ne of the basin. This area includes the Green Hill Road area south of West 11th, as well as an area west of Green Hill Road between West 11th and Royal Avenue. Santa C l ara is located north of Be l t l i ne Road between Highway 99 North and the Willamette River. This area is already partially developed with urban uses but is lacking the minimum level of key urban services. Since Santa Clara is already partially urban i zed and has at least some of the needed p u b l i c services and facilities already in place (schools, water, and electricity), it should have priority over the Willow Creek area. East Thurston is an area extending east from the Springfield city limits to Cedar F l a t Road on the east, Thurston Road on the north and the ridgel i ne on the south. l Since low - density land in both these areas is not needed in the first five years of the planning period, none of the low-density residential land in these three areas shall be converted from urban i zab l e to urban land until at least the next major update of the Plan, or by Plan amendment if warranted by .changing conditions. II-D-4 18686 E. The Plan D12Qram Introduction The Plan diagram is a generalized map and graphic expression of the goals, objectives, and recommendations found elsewhere in the Plan. Rather than an accurate representation of actual size and shape, the arrangement of existing and, to an even greater degree, projected land uses illustrated on the diagram is based on the various elements and p r i n c i p l e s embodied in the Plan. L i kewi se, statements in this section that prescribe specific courses of action regarding the community's future should. be regarded as policies. Projections i n d i c a t e a population of approximately 293,700 will reside and work in the metropolitan area by 2000" The allocation of living, working, and recreational areas and supporting public facilities shown on the diagram and public facilities map in this section generally respond to that projection. If a growth rate management system is adopted that effectively slows the growth of population, the fulfillment of the diagram will not be reached until some- time after the turn of the century. When it is acknowledged that the diagram represents a certain number of people rather than a point in time, it becomes clear that acceptance of the diagram does ' not invalidate the, pursuit of a growth rate management system. Should such a system prove feasible and desirable for the community, the process used to allocate land uses on the diagram, fully documented in the Plan Diagram Alternatives Technical Report (January 1979) , can be repeated for a population at any point in time. Finally, the diagram is drawn at a metropolitan scale necessitating supplemental planning on a local level. The diagram and text provide the overall framework within which more detailed planning occurs on that local level. When local plans include densities or land use allocations significant on a metropolitan scale, their adoption requires analysis of metropolitan implications followed by amendments to the Metropolitan Plan when necessary. Standards for identifying factors of metropolitan significance need to -be defined and agreed to by Spring- field, Lane County, and Eugene. In practice, the process of referrals between the three bodies will also deter- mine issues of metropolitan significance on a ease- by- case' Major Influen The Metropolitan Plan diagram reflects the influence of many sources . Parti- cularly noteworthy are the following 1. The Oregon Land Conservation and Development Commission's statewide Planning Goals, .as published in April, 1977. 2. The. Eugene-Springfield Metropolitan Area 1.990 General Plan, predecessor of this document; particularly the concept of compact urban growth. II -E -1 18686 3. Adopted neighborhood refinement and community plans (example's in Chapter I of the Plan) . 4. Adopted special purpose and functional plans (examples in Chapter I of the Plan ). 5. Information generated through preparation of working papers ( 1978) used in the update process. Those papers are on file in the planning departments of Eugene, Springfield, and Lane County as well as the Lane Council of Governments. Their. most s i g n i f i c a n t p r o v i s i o n s are contained in the Technical Supplement of the Metropolitan Plan, printed and available under separate cover. Subjects examined include public services and facilities, environmental assets and constraints including agricultural land, the economy, housing and residential land use , and energy, all in terms of existing conditions and projected demand. Land Use Designations Land use designations shown on the Plan diagram are depicted at a metro- po l i t an scale. Used with the text and local p l ans . and policies, they provide direction for decisions pertaining to appropriate reuse (redevel- opment), urbanization of vacant parcels, and. additional use of under- developed parcels. They are not intended to invalidate local zoning or land uses which are not cuff i.c i ent l y intensive or large enough to be included on the diagram. They are based on local plans and. po ci es Because of their special nature or limited extent , certain land uses are not individually of metropolitan-wide significance in terms of s i ze or l'ocat ion . Therefore, it i s .not advisable to account for most of them on the General Plan diagram. The standards below are intended to provide minimum guidel i nes - to local jurisdictions in determining appropriate new and expanded sites and locations for such uses in urban areas. 1. Residential This category i.s expressed in gross acre density ranges, Using gross acres, approximately 30 percent of the area is avai fable for auxiliary uses such as streets, elementary and junior high schools, neighborhood parks, other public facilities, neighbor- hood commercial services, and churches not actually shown on the diagram. Such auxiliary uses shall be allowed within residential designations if compat i b l -e with refinement plans, zoning ordinances, and other local controls for allowed uses in residential neighbor- hoods. The division into low, medium, and high densities is consistent with that depicted on the 1990 Plan diagram, in other words: Low Density Residential = Through.-10 units per gross acre. Medium Density Res i dent i al = over to through 20 units per gross acre. High Density Residential = over 20 units - per gross acre. II -E -2 ' �0 � � : 1 , .l td These ranges do not prescribe particular structure types such as, for example, single -- family detached, duplex, mobile home, or multiple --fami ly. That distinction, if necessary, is left to local plans and zoning ordinances. While all medium and high density allocations shown on the diagram may not be needed during the planning period, their protection for these uses is important because available sites meeting pertinent location standards are limited. In addition, several 10-- to 30 --acre medium density residential designations are shown as circles, or portions thereof , with re lated community commercial facilities in the center. This designation reflects statements in the Residential Land Use and Housing, Energy, and Transportation elements directed to the provision of a variety of housing densities, types, and locations and linkage of medium density housing with urban public transit. Where these circles or partial circles are shown at intersecting arterial streets, they may actually occur on one or more quadrants of the intersection as determined by local decisions. Where they appear in the midst of otherwise low density residential neighborhoods, their actual locations require local analysis. To respond to the need for residential opportunities near employment centers and public transportation, 2,400 units are allocated to the Eugene central business district and within one mile of its core. Due to the absence of sufficient vacant land in the core area, some redevelopment will be required. As of January 1, 1977, density of all existing res idential develop- ment within the 1990 Plan projected urban service area was about 3.64 dwelling units per gross acre. This updated Plan, including the diagram, calls for an overall average of just under six d w e l l i n g units per gross acre for new construction through 2000, the planning period. By realizing this goal, the community w i l l benefit from more efficient energy use, preservation of the maximum amount of productive agricultural land, use of vacant leftover parcels where utilities are already in pl ace ' , and more efficient, less costly provision of u t i l i t i e s and services to new areas-. This higher overall average density can on ly be achieved if the cities explore, and when f e a s i b l e , in light of housing costs and needs, adopt new procedures and standards including, for example: a. Minimum densities; b. Reduced minimum setbacks, frontages, and lot sizes; c. More cluster development incentives; d. Zoning based on density rather than structure type, particularly in new developments. I I - � r The urban growth boundary,, through as necessary to insure an ongoing, to meet needs. See al so Urban and II -D -1 in this section. five -year updates, w i l l be modified adequate available land supply Urbanizable Land, beginning on page 2. Commercial: This designation on the Plan diagram i nc l udes only the first four categories: a. Major Retail Centers. Such centers normally have at least 25 retail stores, one or more of which is a major anchor department store, having at least 100,000 square feet of total floor space. They sometimes also include complimen- tary uses such as general offices and medium and high den- sity housing. Presently there are two such developed centers in the metropolitan area, the Eugene centea business district and Valley River Center. In Springfield, the developed Mohawk commercial area combined with the farmer al rport site constitutes a future major retail center. The undeveloped Springfield Airport site requires protection for this special- ized retail use because other opportunities within the metro- politan area are limited. b. community commercial Centers. This category i nc l udes more commercial a c t i v i t i e s than neighborhood commercial but less than major retail centers. Such areas usually develop around a small department store and supermarket. The development occupies' at least five acres and normal l_y not more than 44 acres. This category contains such general-activities as retail stores, personal services, f inanci -al , insurance, and real estate offices, private recreational facilities such as movie theaters, and tourist-related facilities such as motels., When this category is shown next to medium or high density residential, the two can be integrated into a single overall complex, local regulations permitting. c. Floating Node. An integrated medi.um-density residential and communit commercial scale dev.e l o.pment having good transpor- tation access. Where floating nodes are designated in other- wise low density residential neighborhoods , they reflect the energy and transportation. poli intent of the Plan for placing job and shopping opportunities in proximity to residence and where floating nodes are designated within low density resi- dential designations the intent of the floating node may be met in several, dispersed, neighborhood scale developments rather than one community commercial scale development. Exact location of floating-nodes should be determined by local decisions or a refinement planning process. II -E -4 f i / d . Existing Strip Commercial . This designation Is included when it. 1s of sufficient size to be of more than local- significance. Development and location standards for [additional] str i p commercial as well as neighborhood commercial uses are dis- cussed below. e. Neighborhood Commercial Fac i l i t -i es (Not Shown on Plan Diagram) Oriented to the day-to-day needs of the neighborhood served, these facilities are usually centered on a supermarket as the p r i n c i p a l tenant. They are also characterized by convenience goods outlets, such as small grocery, variety, drug, and hard- ware stores, and personal service establishments; e.g., med i cal and dental offices, barber and beauty shops, l aundromats, dry cleaners (not pl ants ), taverns, and small restaurants. The determination of the appropriateness of specific sites and uses or additional standards is left to the local jurisdictions. Minimum location standards and site criteria include; 1 } Within convenient walking or bicycling distance of an adequate support population. For a full-service neighborhood commer- cial center at the high end of the size c r i t e r i a , an adequate support population would be 4,000 persons within one --half mile of the site and with no other neighborhood center within that area of relying on that same support population. For smal l er sites or more limited service, a smaller support population or service area may be sufficient. (2) Adequate area to accommodate off -- street parking and loading needs and landscaping, particularly between the center_ and adjacent residential properties as well as along street frontages next to outdoor parking areas. Less than f ive acres, depending on the number of establishments associated with the center. (3) Sufficient frontage to assure safe and efficient automobile, pedestrian, and bicycle access without conflict with moving. traffic at intersections and along adjacent streets, (4) Less than five acres, depending on the number of establishments assocated with the center. Neighborhood commercial facilities may be included in community commercial centers when the latter meet applicable location and site criteria as listed above, even though the community commercial centers are larger than five acres in size. In certain instances "Ma and Pa'' grocery stores or similar retail operations play an important role in providing service to exist- ing neighborhoods. These types of operations which currently exist, can be recognized and allowed to continue through such actions as rezoning. II-E-5 18686 f. Strip or Street - Oriented Commercial Facilities. Largely oriented to automobile traffic, the need for this type of facility has diminished with the increasing popularity of neighborhood, community, and regional shopping centers with self-contained, off-street parking facilities. Strip commercial areas are characterized by commercial zoning or, at least,, commercial uses along major arterials; i .e. , portions of River Road, West 11th Avenue, part of Willamette Street, Highway 99N. , Franklin Boulevard in Eugene, Main Street in Springfield, and others. Such uses often create congestion in adjacent travel lanes, are generally incompatible with abutting noncommercial uses, and are not as vital to the community as previously because of the existence of retail, office, and service complexes with off-street parking facilities. They should be limited to existing locations and transformed into more desirable commercial patterns, if possible. To mitigate negative external characteristics, unless it is not in the interest of the public, efforts should be made in connection with existing strip commercial areas to (1) Landscape perimeters, especially when adjacent to residential properties. (2) Direct lights and signs away from residential areas. (3). Control -and consolidate points of access and off-street parking to minimize safety hazards and congestion in connection with adjacent streets, 3. Industrial: This designation includes the following, only the first four being shown on the Plan Diagram: a. Heavy Industrial . This category is often character i zed ' by uses that can be hazardous, offensive, obnoxious or unsightly_ . These industries are generally involved i n the (primary) processing of raw materials into refined materials in large volumes, which often require large energy supplies and large volumes of raw materials. , Processing usually generates liquid or sol id wastes, - air pol 1 utants, and other emi ssions, such as noise, vibration, heat and light. Raw materials and refined products require heavy transportations rail, and truck. Labor force size is normally large. Examples of such uses are lumber and wood products, paper, chemicals and primary metal manu- facturing, large scale storage of hazardous materials (flammable liquids, explosives, unstable chemicals, etc.), power plants and railroad yards. Since-heavy industrial demand projections indicate no need for additional acres., this designation generally reflects existing II -E -6 M_ uses . However, to allow for expansion of existing firms, vacant land is allocated for heavy industrial use when (1) i t is owned by and adjacent to existing heavy industry, (2) i t is zoned for heavy industry, and (3) it is not larger than twice the size of the existing site as used for heavy industry. b. Light - Medium Industrial . This type is markedly different from heavy industrial. Light and medium industries are generally involved i n . the secondary processing of materials into com- ponents, the assembly of components into finished products, transportation, communication and utilities, wholesaling and warehousing. The external impact from these uses is usually m i n i m a l ' . The need for trans port at i on is usually met by truck, although rail and air transportation may be necessary. The labor force varies from small to large. Activities are gen- erally located indoors, although there may be some outdoor storage. c. Special Light Industrial. This. is a specialized concept devel- oped to deal with relatively large (projected employment of at least 500 per firm) light industrial firms such as manufactur- ers of semiconductors, medical and dental s u p p l i e s , photographic equipment, computers, and other electronic equipment and large- scale research and development complexes. The activities involved are generally characterized by highly skilled and technical labor, and are located indoors. often precision is of such importance that the air pollutants, noise, and vibra- tion associated with heavy industry are not compatible. These industries are often located in campus-type industrial parks and are general involved i n the manufacture of assembly of final products of small unit size or research --type development in an office -based atmosphere. Both their energy requirements and their necessary component material volumes are normally small. There are generally no effluents or other emissions to create problems. Heavy transport is not important, although access to air transportation may be required. Supporting office -based commercial development shall be considered appro- priate use planned to compliment the primary intent of special 1- i ght industrial development'. Eight sites are depicted with a star ( *) on. the diagram. Loca- ti anal c.riteri a used for site selection include a minimum of fifty acres, five or ownerships, good access to existing or planned transportation faci 1 ities, especially highways, compatibility with surrounding designations, and ability to maintain a campus-like atmosphere... While all such sites may not be needed during the planning period, they shall be 'pro- tected for this specialized use to provide a selection in order to attract firms i n response to the need to 'diversify the econ- omy. Local governments shall take actions to protect the iden- tified sites from premature or piecemeal development and sub- division. II -E -7 19696 d . Agricultural - Related Industrial . This designation includes only farm uses dealing with the primary processing and preparing and with the storing of farm products. Industrial uses in this category may provide some of their own minimum' level key urban services. Lands in this designation shall be protected exclu- sively for the intended uses to take advantage of their unique parcel size, location, and transportation access characteristics. e. Small Scale Light Industry. (Not Shown on Plan Diagram) T h i s category is characterized by industrial uses that emit no smoke, noise, glare, heat, dust, object.ionabl e odors or vibrations beyond property boundaries; pursue their activities within buildings; and do not generate .a large amount of vehicular trips for employees, customers, 'or freight movements. Depending on the local s itua- tion, in some instances such industrial uses may be incorporated into mixed use areas. To enhance compatibility with adjacent nonindustrial areas, local governments should apply development standards to specific proposals. Such standards should address building height, setbacks, adequate off - street parking areas, landscaping, and safe and efficient access. The determination of the appropriateness of specific .sites and uses or additional . deve l opment standards is left to the local jurisdictions Minimum locational standards and site criteria include: (1) Access to arterial streets, normally without use of resi- dential streets. (2) Up to five acres with sufficient parking areas and frontage to accommodate structures, parking areas and access in character with adjacent nonindustrial properties. 4. Public and Semipublic This designation contains three categories: Z Government (includes major office complexes and facilities, lodges);. b. Education (includes high schools and colleges); c. Parks and open space (int'ludes go 1 f courses and cemeteries, in recognition of t eir role as visual open space). In addi t'ion to those not shown at a neighborhood scale, but automa- tically included in the gross allocation of residential acres, there is a need for public facilities and open space at a= non -local level such as regional /metropolitan parks. Several are shown on the diagram. Those not yet in public ownership are based on environ- mental constraints such as excessive slopes or assets such as unique vegetation associations. They should be preserved if possible through _public acquisition or tax relief programs. If that is not p o s s i b l e , development should be required to respond to their unique conditions through clustering in areas of least value as open space, locating c i rcul at ion and access points in a manner that will result in minimal disturbance of-natural conditions, and other similar measures particularly sensitive to such sites. II-E-8 I 5. Agriculture These areas outside the urban growth boundary include Class I -IV soils with a medium to high agricultural productivity rating based on their ability to produce a variety of crops. 5. Sand and Gravel: This category includes processing areas, land currently zoned for sand and gravel extraction, and additional areas containing this resource which will be needed through the planning-period. Some of these areas can accommodate interim uses such as agriculture, parks, or similar open space roles. When the resource is exhausted, rehabilitation for reuse should occur. a. Rural : These areas are located outside the urban growth boundary. Some are characterized by environmental constraints such as poor soils and drainage, limited ground water, and steep slopes. Areas in this designation should be maintained in 1 -arge parcels (five acres or larger) in order to provide opportunities for rural living and life styles. Alt some agriculture and timber areas could be considered a subcategory of rural areas, because of their special characteristics they are depicted separately on the diagram. See also the description of Urban Reserve, another subcategory of rural l and . 8. Forest Lands These locations..., outside the urban growth boundary, are areas of potential or existing timber harvest based on pre- liminary .analysis of woodland soil productivity, existing vege- tative cover, and minimum size of ten acres. 9. Mixed Uses: This category represents areas where more than one use might be appropriate, usually as determined by refinement plans on a local level . For example, the Wh i teaker Refinement Plan includes several areas where a mix of compatible uses, based in part on existing development, are designated. 10. Urban Growth Boundary: This site - specific line separates the projected .urban area designated to accommodate urban development through the planning period (293,700 population) from urban reserve, agri- culture, and rural designations. The location of the urban growth boundary results from environmental, social, and economic analysis in terms of supply and demand, which is basic to this entire Plan. Accordingly, LCDC Goal 14's establishment of urban growth boundary criteria were employed with the f o l l o w i n g results (for more detail, see the Technical Supplement)* Factor 1. "Demonstrated need to accommodate long- -range urban pop- ulation growth requirements consistent with LCDC goals;" II-E-9 L * r 6 Population projections, employment projections, and housing projections were prepared representing the best available technical information about long- -range urban growth in, the metropolitan area. These projections were translated into total land use needs. The Plan diagram was then constructed to accommodate projected residential growth, assuming new residential construction over the planning period would, on an overall metropolitan -wide basis , average approximately six dwelling units per _gross acre. Factor 2. "Need for housing, employment opportunities, and l i v -- ability - " 3 The population and employment projections were. translated into need for residential, commercial, and industrial land in response to local and state --wide goals, objectives, and pol i ci es . Extreme care has been taken to consider the demand (projections) when analyzing the land supply in an effort to provide adequate housing and employment opportunities. Translation of the identified natural assets and constraints into limitations and prohibitions to development in most instances was done to .preserve the livability of the metro- politan area. These prohibitions and limitations were considered as refinements to the vacant land supply. Factor 3. "orderly and economic provision for public facilities and services;" The urban growth boundary is based partly on the cost of providing urban services to the metropolitan area (for example, ridgel ines, and other topographic features were considered) . The diagram reflects. the concept of compact urban growth, sequential development, and opportunities for the least ' costly provision of public services and facilities. Factor 4. "Maximum efficiency of land uses within and on the fringe of existing urban area;" Again, the diagram reflects compact urban growth which, i in turn, should achieve maximum efficiency of land uses within and on the fringe of the existing urban area. Factor 5. "Environmental, energy, economic, and social consequences;" The diagram represents a balancing of all environmental, energy, economic , and social impacts as addressed by . L CDC II -E--10 18686 - N goals and the Plan text. For example, decidedly lower residential densities and a much larger land supply may result in lower land costs, but energy savings may very well be sacrificed through need for longer transportation routes and accompanying fuel consumption . Factor 6. "Retention of agr i c u,l t ur al land as defined , with Class I being the highest priority for retention and Class VI the lowest priority;' The compact urban growth and sequential development prin- ciples embodied in the Plan text and diagram allow - for retention of the' most productive agricul - tural lands when balanced with other planning goals-, Factor 7. "Compatibility of the proposed urban uses with nearby agricultural activities." Again, the diagram adheres to the compact urban growth form and sequential development. The separation between urban and urban i zab 1 e lands and rural lands formed by the urban growth boundary creates a sharp distinction between ultimate urban uses and agricultural uses on rural lands. While urban development may create prob l ems from an agr i ;- cultural production standpoint, the compact urban growth form is, i n many ways, compatible with nearby a g r i c u l - t u r a l activities. First, as urban densities increase, the close proximity of productive agricultural areas have the potential to access larger markets for their products, thereby increas- ing their economic return. Second, .close proximity can reduce transportation costs for agricultural products grown near metropolitan population concentrations, e n a b l i n g local farmers to remain or become competitive with more distant markets . Third, retention of prod uc -- t i ve agricultural lands immediately adjacent to urban development can provide possible social and psychological benefits to urban residents. Fourth, the compact urban growth form and sequential development avoids the problem of leapfrogging and the problem of surrounding an area of agricultural development with urban areas. Since the most productive agricultural lands are typified by Class I agricultural soils located in the f 1 oodway fringes, the boundary of the fl oodway fringe often serves as the location of the urban growth boundary. when the fl oodway fringe fol 1 ows ' a natural bench or-when a road II-E-11 • a ■ creates a dike which defines the f l oodway fringe, the boundary between urban uses and agricultural uses may be abrupt. In other instances, the transition from urban to rural is not as easily definable on the ground. Recognizing inevitable problems for agricultural produc- tion, retention of small isolated pockets of land that are or would be surrounded by urban uses were not considered a high priority in drawing the urban growth boundary. The urban growth boundary is precisely described as noted on and in conjunction with the "Auxiliary Map No. 3" in this section. A larger scale edition is on file in the pl.ann i ng offices of Spring- field, Eugene, Lane County, and the Lane Council of Governments. 11. Plan Boundaries: With modification to the boundaries of adjacent County subarea pl ans, these lines will represent the interface between the area encompassed in the Metropolitan Plan and areas subject to-County subarea planning. At some future date, these boundaries may require 'further adjustment reflecting increasing need for urban land in the metropolitan area. The County and the two cities should recognize this possibility in their respective planning programs. 12. Major Transportation Corridors and other Public-Facilities: Recog- n i z i ng t e c ose nterre. at on s p between transportation facilities and land use, the major existing and planned streets and highways .included in the adopted Eugene - Springfield Area 2000 Transportation Plan are shown on the Plan diagram. A l imi ted number of uses normally associated with urban areas are shown on the diagram even .though they are not included within the urban growth boundary. See, for example, the industrial area at the intersection of Airport Road and Highway 99 North. These are existing uses that w i l l probably not require additional key urban services during the planning period. Plan Diagram Auxiliary Maps In addition to the urban growth boundary, other factors are important as they interface with land use patterns. They are i l l u s t r a t e d on the - three "Plan. Diagram Auxiliary Maps" and include major utility corridors, sewer trunk lines, electrical substations, the boundaries of the Willamette River Greenway, and identification of areas subject to neighborhood refinement or community plans adopted subsequent to adoption of the 1990 Plan in 1972. II -E -12 r r Urban Growth Boundary Location Description Keyed to Auxiliary Map No. 3 in This Section For a more detailed description of the urban growth boundary on a � 1 ar 9 er scale map, contact the Lane Council of Governments, or the planning offices of Eug Springfield, or Lane County, g A -B - Ridgeline and Eugene City limits B -C Interstate -6 C -D Middle Fork D -E Fl oodway Fringe (with some exceptions) E -F Jasper Road F -G Ridgeline G- H Boot h -Ke.l l y Road H-I Ridgeline I -J Ridgeline and Ridgeline spur to 1,100 foot contour (follow .1,100 contour to point J) J-K Property lines near base of steep slopes K -L Highway 126 to Thurston Road L -M Thurston Road M -N Floodway Fringe N -o Springfield city limits o -P Eugene - Springfield Highway and 42nd Street. P -Q Marcol a Road,. Fl oodway fringe, existing uses (property li Q -R River Terrace R -S Property Boundaries S Railroad T -U Sand and Gravel resources, f l oodway fringe U -V Sand and Gravel resources, - Willamette River V-W, Fl.00dway and sloughs, existing development W -X Beacon Drive X -Y Existing development Y -Z Southern Pacific Railroad 2 -AA Awbrey AA -BB Existing development and property-lines; parallel Highway 99 BB--CC Beltl ine Road g y CC -DD Eugene City Limits DD -EE Barger Drive EE-FF Green Hill Road FF--GG Royal Avenue GG -A Ridgeline (Oak Hill and Willow Creek Basin) II-E-21 10191 n ^ n 1 V 000 A. Residential Land Use and Housing Element The Residential Land Use and Housing Element considers the land and the units where metro area res i dents l i v e . Residential uses occupy more developed land than any other use in the metro area, The element addresses the state housing goal "To provide for the housing needs of citizens of the state," and includes policies based on an analysis of exi sti n.g and future housing demand, supply, problems, and opportunities. Housing demand originates with the basic need for shelter. When shelter is of i nsuff ici.ent quantity or quality, demand exists for additional or differ- ent units. Factors that influence demand include existing and projected pop- ulation, number and size of households, age of household head, household income, and whether households own or rent. The element focuses on three aspects of the housing supply: 'the dwelling units, residential development densities, and res i dent i al. , l and . It also' deals with housing problems and opportunities that exist because of: (1) selected characteristics households such as low income; (2) selected characteristics of housi - units, such as substandard condition; (3) existing public policies; and (4) difference between the units needed and the units supplied. Finally, this element provides a guide for local jurisdictions in planning to accommodate future res i dent i al , deve l opment .i n balance with , otfher land uses and to meet the housing needs of the existing and projected ,population . Findings 1. The growth of the metropolitan area's housing supply is not keeping pace with population growth and - r -i s i ng household - for- . mat i on rates. Vacancy rates in the metropolitan area have been low and, with few exceptions, decreasing since 1970 for all structure types.. 2. Average household. size decreased from approximately 3.0 to 2.. b persons between 1970 and January 1979, However; during the same period the size of housin -g units, . as reflected by number of bedrooms, increased. As a result, the metropolitan area contains relatively few one and two bedroom units for 'owner- ship. 'Furthermore, approximately five percent of the area's households occupy units that have two or more bedrooms beyond the number of persons in the household, for example, three bedrooms for - a single person household. These factors may indicate some of the area's housing stock is -not being used efficiently.. 3. The composition of the housing supply is changing. Single - family units are decreasing relative to mobile;- duplexes, and multi- family unit.s. -In 1970, the supply consisted of 70 percent. single III -A -1 01_91 family, three percent mo.bi l e home, six percent duplex, and 21 per- cent multi-family. - In January 1979, the supply consisted of 62 percent single-family, six percent mobile home, nine percent duplex,, and 23 percent multi-family. 4. Approximately 12 percent of the area's housing units were sub- standard in 1976. Nearly all of those were suitable for reha- bilitation. 5. The average overall gross density of all residential development wi th.i n the 1990 Plan's projected urban service area was' about 3.6 un its per acre i n January 19 77 . The average gross density of single - family development was 2.7 units per acre; of mobile homes, 4.6; of duplexes, 7.2; and of multi - family, 18.1. 6. Residential development is generally occurring at densities below the maximum permitted by the 1990 Plan. On January 1, 1976, the overall average of existing residential development in Eugene- Springfield was approximately . 4.3 dwelling units per gross acre. 7. If future development occurs at existing overall densiti . by structure type, the acreage zoned for low, medium, and high density residential use will` be inadequate to meet projected demand to the year 2000, 8. Real housing costs are increasing more rapidly than real incomes. Sixty -two percent of the metropolitan area's household spent 25 percent or more of their gross incomes for housing in January 1979. In the same year, approximately 37 percent of all metropolitan area households had incomes -lower than 80 percent of the area's median income . There is not an adequate number of lower cost units for low and moderate i ncome � hou seho l ds . 9. Ownership units are primarily single -- family detached units. There is an increasing demand for more units for households desiring ownership without the burden of home maintenance. 10. Residential uses in and near downtown areas are dominated 'by rental units. 11. C o n f l i c t i n g land uses threaten the v i a b i l i t y and - i dent i ty of some metropolitan res i dent i al neighborhoods. With appropriate land use controls, the mixed' --use character of these areas can be compatible with residential development 12. Zoning classifications based on the number of bedrooms per acre may more accurately reflect the l eve l . of use of some p u b l i c , facilities and services _ than traditional zoning classifications that are based on the number of units per acre. III -A -2 IW fli labob 11 13. =Low income households and households that spend a high proportion of their income for housing are primarily single person households, households headed by persons under 25 years of age or 65 and over, households that include handicapped persons and female headed households. 14. The metropolitan area does not have an adequate number of units to meet the special housing needs of the area's elderly, handicapped, and students. 15. of the groups intended for protection by fair housing ordinances , the principal groups discriminated against in the metropolitan area are racial minorities and single heads of household - s, especially those with children. 16.. Nonlocal policies such as federal lending policies affect the metropolitan housing market. Some conflict with the goals -and objectives of the Metropolitan Area General Plan. 17. All three general purpose governments, i n the metropo l -i t an area implement- housing programs and coordinate their housing planning and implementation activities. Goal Provide vi able. residenti al communities so all residents can choose sound, affordable housing that meets individual needs. 1. Coordinate residential land use and planning w-i th other .elements of this Plan and with locally adopted plans .2. Provide residential areas that offer a variety of housing densities types, sizes, costs, and , locat ions to meet projected demand. 3. Locate residential development in relation to the avai l abi l ity' of employment, commercial services, public utilities and facilities, and transportation modes. 4 . Provide for and promote generally higher residential dens i t i es in the current urban service area to encourage a compact urban growth form. 5. Protect 'existing and proposed res i dent i al areas from conflicting nonres i dent i -al land uses providing for compatible and func - t i onal mixed-use development (residential and nonresidential). III A-3 18b86 13. Low income households and households that spend a h i gh proportion of their Income for housing are - primarily single - person , households, households headed by persons un - de.r , 25 years of age or , 65 .and over, households that include handicapped persons and' female- headed households. tiY ,T 14. The metropolitan area does not have an adequate number of units to meet the special housing needs of the area's elderly, handicapped, and students r Of the-g intended for protection by fair housing ordinances, 15. the principal groups discrimi "against i n the met area are racial Minorities and s *ngl e. heads of households, especially those with ch i l drpn . of icies such as federal lending 16, Nonlacal p 9 policies affect the metropolitan housing market. Some conflict wi th-the goals and objectives. of the Metropolitan Area General Plan. 17 g . A11 three . ener al purpose governments. in the metropolitan area impl housing programs and coordinate their housing planning and impl a c t i v i t i e s . Goal Provide viable residential communities so all residents can choose sound, affordable housing that meets, ind iv i dual needs* Objectives 1. Coordi residential land use and housing planning with other elements of this P1 an and with local ly adopted pl ans . 2. Provide residential -areas that offer a variety of housing densities typ costs, and locations to meet projected demand. .. 3 . Loc a to resident* al development in relation to the availability of employment, commercial services,' public utilities and facil it *es, and transportation modes. 4. Provide for and promote generally higher residential densities in the current urban service area to encourage a compact urban growth form. Protect ex i st i n and x�o osed res i dent i al areas from conflicting 5. g P p nonresidential land uses while providing for compatible and f unc - tional mixed -use development (residential and nonresidential) . III -A -3 ■ ■ a . Cont :_nue :to. ut.i l i ze.� �e x�i , .st i ng� large vacant. or nearl -y. v avant parcels for rsdenti.al�: projects- that. require such parcels; for exampl e, P l tinned unit dev��el :.mul-t i - family developments , and mobile home p:arks� 7. Maintain existing neighborhoods which have a supply of rehabil ita- tion housing. 8. Encoura ge conservation of existing housing - by rehabil - i t at i on of substandard uni and other methods, such as rel oc at' on of ex ist- i ng structures, and convers of nonres idential structures to res i �- .dential use, provided_ such actions reflect planned densities for the subject - area. 9. Encourage and support development of housing units for low and moderate income households. 10 10 Increase housing-opportunities for the specialized needs of the elderly, hand I icapped,' and students, as well as minority, female - headed, and single person households. 11. Encourage cooperation between public, pr i v ate', and consumer sectors of, the area's housing market. 12. 8a l ance the need to provide a sufficient amount land. to accommodate affordable- housing with the community's goals to- maintain a compact urban growth , form . Policies 1. Coordinate new residential development with the prov i s.i on of an adequate - l evel of sery i ces and f ac i l i t i es such as sewers, water, transportation facilities, schools and parks. 2. Conti to seek public assistance for households that are unabl e to pay for shelter on the open market. 3. Increase the suppl of land zoned for low, medium, and high density residential uses correlating the amount zoned with the projections of demand. Periodically monitor and analyze the population and dwelling unit projections to provide a reliable basis for land use deci sions' and to assure sufficient residential land to- maintain a balance between supply and demand. 40 Phase annexations to maintain an adequate inventory of buildable r es i dent i al land. 5. Establish specific density ranges within zoning ordinances that are consistent with the broad density 'categories of thi Plan . Translation to an equivalent of persons per- corresponding t,o the density categories in this Plan may be substituted for dwelling units per-acre by local governments. Eugene and Springfield sh al i III -A-r4 18486 establish standards for ._all -owing -a waiver-of the specif is density ranges in this Plan to increase the supply of low and 'moderately priced housing. a. Low density -- Through ten dwelling units per gross acre; b, Medium density - over ten through 20 dwelling units per gross acre.. c. High density - over 20 dwelling units per gross acre. 6* Review residential land development regulations to -ensure that they encourage a variety of housing densities and types. 7. Encourage public, private, nonprofit, and cooperative associations and joint public -pr. i v ate partnerships to enter the low and moderate income housing market. 8, Continue to encourage the dispersal of housing for a -11 income groups. 9. Encourage proposals to develop specialized housing for the area's elderly, handicapped, and students. 10. Evaluate local development standards and regulations for their effect on housing costs. Modify development regulations- that are found to unnecessarily add to housing costs. 11. Encourage retention of large parcel s , or con - sol i dat i,on of 'small par- cel s of - res ident i al ly zoned 1 and to f ac i l i tate thei r use or .reuse for projects requiring such parcel-s. 12, Promote compatibility between residentially zoned land and adjacent areas . 13. Develop local mechanisms and processes which ensure coordination between public, peiv ate, and consumer sectors of the area's hous- ing: mark -et. l4 . Implement housing programs that provide housing opportunities for all metro area residents without discrimination. 15. Investi - gate and when advisable, implement mixed use zoning, par- t icul arly i.n established neighborhoods where compatible and func- tional mixes already exist. 16. Encourage location of nonresidential uses such as neighborhood com- mercial and small scale 'light industry within residentially designated areas when those auxiliary uses are compatible with refinement plans, zoning ordinances, and other local controls for allowed uses in residential neighborhoods. 17. Encourage a var i ety of new residential development in and near the downtown area. III --A -5 r ► 13 , Work with the state and federal governments to minimize conflicts between local and -non l oe al ho u -s i ng policies -and programs. 19. Facilitate the construction of individually owned units in multi. family- structures, 20. Conserve the metropolitan area's existing supply of sound housing in stable ne . ghborhoods in residentially planned areas through code enforcement, appropriate zoning, rehabilitation programs, and by discouraging. conversions to nonresidential use, 2110' Encourage a mixture of dwelling unit types i n ' appropr i ate areas. 22. Develop . c incentives such as density bonuses for builders and developers who provide amenities or specialized housing that benefit the metro area, such as housing for low and moderate income households. 23. Encourage increased residential density at various locat -ions within cities by implementing Programs, policies, and code modifications that both establish minimum densities and allow maximum densities permitted by local or Metropolitan Area General Plan density cate- gor i es - i n designated areas when consistent with other planning policies. 24. Conduct metropo l i t an -wide analysis: . . J a. To d'etermi ne the number of specialized un.i is needed for the elderly, handicapped, and students as well as methods for producing such spec i i zed units. b. To determine if zoning classifications that correspond to number of bedrooms or persons per acre more accurately reflect the level of use of some public facilities arO services than zoning classes that correspond to structure type or' number of units p acre. c. To consider the social and economic effects of the urban boundary on the initial price, long -term costs, and availability of land and housing, 25 There possible, evaluate and reduce on -site parking requirements for residential developments near downtown areas. 26. Encourage in- filling and utilizing existing undeveloped subdi- vision lots in urban areas. 27. Provide for mobile homes as an outright use in [one or more] at least one of the following situations in Eugene, Springfield, and Lane County: mobile home subdivisions, mobile home parks, or on individual residential lots. III -A -6 I 28 . Develop mech an i -sms and processes for. participation in management of low and moderate income housing projects supported with local p u b l i c funds by persons for whom the projects are. intended, 29, Encourage programs. that f a c i l i t a t e - home ownership by low and moderate income families. 30. Encourage higher density residential development near industrial .and commerc i al centers throughout the metropolitan area . . III -A -7 B. Economic Element In recent years, there has been a strong structural shift in the Eugene - S p r i n g f i e l d metropolitan area's economy. This shift is characterized by three trends (1) a decline in the lumber and wood products industry as a source of employment and an increase in employment in other manufac- turing activities; (2) diversification of the non-manufacturing segments of the local economy primarily in trade, services, finance, insurance, and real estate; (3) the development of this metropolitan area a regional trade and service center serving Southern and Eastern Oregon. two The first t trends, are consistent with changes that are occur i ng in other portions .,of the state and throughout the nation and are the result of rising real 'incomes (leading to increased consumption and demand for services) and higher productivity of labor in manufacturing. the econo of the Eu ene -S .r i n field metropolitan area is I n general, y g P g p rojected to grow with the majority of employment opportunities in the a non - manufacturing fields of wholesale and retail trade, finance, insur- ance, and real estate and in manufacturing sectors other than lumber - and. products roducts and food products. This growth should offset the declines t i ndustr in employment in the lumber and wood products y. ro `ected growth i n th'i s area's economy, i t i s essent Given the p � g ial. that . an adequate supply (qu ad qual itati'vely) of commerce al and i n'dustri al land be available. An adequate' supply of land includes not only sites sufficient in size to accommodate the needs-of the commercial or industrial operat i ons (including expa ns ion ), but - al so includes sites which are attractive from the .standpoint of esthetics, transportation costs labor costs, availability_ of skilled labor,' natural resource avail- a b i l i t y , proximity to ' markets , and anticipated growth of local markets . Ih striving toward LCDC' s Statewide Economic Goal, "to diversify and improve the economy of the state, " the Eugene-Sp metropolitan p area must take advantage of and encourage the further diversification of this area's economic activities. and role as a regional center. This diversification and growth can improve the opportunities for presently underutilized human resources and general raise the stan dard of living for metropolitan area residents. Implicit in the goals and objectives that follow - i s the premi that it P i neither economi growth per se nor industrial devel o P meet as an end . in itself which is desirable. Rather, -it is the improved wel fare of the residents of the metropolitan area, measured by change in unempl oy- ment - real incomes and environmental quality which i s the ultimate goals of all economic efforts. Simple aggregate' growth or industria expan- sion is acceptable only insofar as it-is consistent with these goals and objectives. III -B -1 18686 Findin s 1. The structure of the Eugene - Springfield metropolitan area economy is undergoing a shift away from lumber and wood pr- oducts manu- f actur i ng (and other heavy industrial activities) , and towards a more diverse economic base characterized by growth in light manu- facturing activities and the nonmanuf actur i ng activities of trade, commercial and professional services, finance insurance, and real estate. 2. The lumber and wood products sector is the metro area's dominant manufacturing activity, and i n. this respect Lane county's forest is the area's most important natural resource u t i l i z e d as a factor of production, 3. Major institutions in the metro. area, including the University of Oregon and Sacred Heart Hospital, have had a stabilizing influence on the local economy. 4. The Eugene - Springfield metropolitan area is developing as a regional center for activities such as tourism., d i s t r i b u t i o n , and financial services, serving the Southwestern and Central Oregon area. 5. In order to meet the projected growth in the commercial and light manufacturing segments of the economy, an adequate supply (quan- titativel'y and qualitatively) of land must be ava. l able. The current supply is. not adequate to meet pro needs � quant i -- tatively, qualitatively, or in terms of location, through the end of the century. 6. Local per capita income is lower than for Oregon as a.. whole or the Portland metropolitan - area, but is comparable to or higher than adjacent counties. 7. The local area labor force is characterized by higher levels of unemployment than is Oregon as a whole and the nat ion; h'owever, it is not presently known what portion of the-total unemployment is short -term and what portion is chronic or long-term. 8. - Job creation is at a very h-i gh level in the metro area. This fact, together with the available data on unemployment, - implies that there may be a mismatch between 1) existing job skills and job finding skills and 2) the jobs which are available. These condi- tions are particularly important to the area's expanding labor force which results from people moving to the area and seeking jobs as well as existing residents entering the labor force for the first time, e.g., women. 9. Heavy manufacturing industries, including primary metals, chem- icals and paper, are characterized by high levels of po l l ut i on or energy consumption. 10. Both expansion of existing businesses through use of local capital and entrepreneurial skills - and the attraction of new employers offer realistic opportuniti for economic development. III-B-2 1868b 11. The healthful environment of the metro area can help attract indus- trial development, hold workers, and attract convention and tourist- related economic activities. The concern for cl air and water is a high priority with area residents. 12. The provision of adequate public facilties and services is necessary for economic development. 13. There are presently inefficiently used resources in the metro area, including land, labor, and secondary waste products, 14. Major employment centers - - include the Eugene ' and Springfield central business districts, the University of Oregon, Sacred Heart Hospital ; the Southern Pacific rail yards, the west Eugene industrial area, the east and south Springfield industrial areas, the Highway 99N indus- trial area, Good.pasture Island, and the Mohawk- Northgate area. 15. The metropolitan economy i's made up of a number of interrelated and important el ements, one of which is construction and con struction- related activities. Construct ion, for example, is essential for all sectors of the economy as well as for the provision of an adequate supply of affordable housing. 16. The mixture _ of commercial and office uses with industrial uses can reduce or enhance the utility of industrial areas for industrial purposes, depending upon circumstances. Uncontrolled mixing creates problems of compatibility, traffic congestion, and may limit the area available for industri al development. Limited mixing subject to clear and objective criteria designed to minimi ze or eliminate incompatibility, traffic problems, and which preserve the area for its primary purpose can � make an industrial area more pl easant, con- venient, economical, and attractive as a place to work or .locate, Goal Broaden, improve, and diversify the metropolitan economy while main- taining or enhancing the environment. nhiprtivpr, I. Improve level, stability., and distribution of per capita income for metropolitan residents. 2. Reduce unemployment in the resident labor force, especially chronic, long -term unemployment. 3. Encourage local residents to develop skills and other educational attributes that would enable them to obtain existing j 4. Promote industrial and commercial development. with local capital, entrepreneurial skills and experience of the residenti labor force, as well as with new light manufacturing companies from o -uts i de the metro area, T T T_R-1 i w w r y ) M 9 flo 5 . Supply an adequate amount of land within the urban growth boundary to accommodate: 1) the diversifying manufacturing sector (especially low poll ' ut i ng, low energy using light manufacturing uses) ; 2) the expansion of existing businesses; and 3) the continued expansion of the metropolitan area as a regional distribution, trade and service center. 6. Maintain strong central business districts to provide for office- based commercial, governmental, and specialized or large-scale retail activities. 7. Ensure compatibility between industrial lands and adjacent areas. S. Reserve enough remaining large parcels for special developments requiring large lots. g . Increase the potential for convention- and tourist-related economic activities. to . Provide the necessary public - f a c i l i t i e s and services to allow economic development. 11. Attempt. to find ways tp more effectively use inefficiently used resources such as land, labor; and secondary waste products. 12.. Provide for limiting mixing of office, commercial, and industrial uses subject to clear, objective criteria which (1) do not mater- ially reduce the suitability of industrial, office, or commercial areas for primary use, (2) assure compatibility, and (3) consider the potential for increased traffic congestion. Policies 1. Demonstrate a positive interest in existing and new industries, especially those providing above-average wage and salary levels, .an increased variety of job opportunities, a rise in the standard of living, and utilization of our exi sting comparative advantage in the level of education and skill of the resident labor force. 2. Encourage economic development which utilizes local capital, entrepreneurial skills and the resident labor force. 3. Encourage local residents to develop job skills and other educa- tional attributes that will enable them to fill . exi sting job opportunities . r III-B-4 i�6�d 4 . Encourage the continuance of career preparati and employment orientation for metropolitan area residents by the community's educational institutions, labor - unions, business and industry, 5. Reduce industrially zoned lands outside the projected urban service area. 5. Reduce the amount of surplus undeveloped land zoned for heavy industrial uses. 7. Provide existing industrial activities sufficient adjacent land for future expansion. 8. Increase the amount of undeveloped land zoned for light industrial and commercial uses correlating the effective supply in terms of suitability and availability with the projections of demand. 9. Encourage industrial park development including areas for - ware -- hous.i ng and Ai stributive industries. and research and development activities. lo. Encourage the impro.vemen't of the appearance of exi i ndustri a , l areas as well as their ability to serve the. needs, of - ex i i ng. and potential light industrial devel.opm -ent , 11. Encourage-the expansion of existing and the location of new 1 i ght manufacturing activiti -es whi are 'char -. by low level of p o l l u t i o n and a relatively low level of energy use. 12 . Encourage economic activities wh ich strengthen . the 'metro', area s position as a regional distribution, trade, health, and sere J c center. 1.3 . Continue to encourage the development of. convention and tourist- re 1 at.ed f ac i 1 i t1 e s. 1 - 4. Continue efforts to keep the Eugene -and: Spr i ngf.i el d : c:entr al bu-s i ness di stricts as vital. centers of the ' metropol i tan area., 15, Encourage c o m p a t i b i l i t y between i ndustr i - al 1 y zoned- 1a'nds. and ad jAc-ent areas in local. pl an.n i ng programs. 160 ' U t i l i z e rocesses and I oc al controls which encourage. retention of- large parcel s. or consol idation of small parcels of industrial 1 or commercially zoned land to facilitate their use -or r_ euse in a comprehensive rather than piecemeal fashion, 17. Encourage the - devel opment , of transportation fac i 11 t i1es which would improve- access to i ndustr i al and commerc are'a's improve freight. movement cap -b i 1 i t i es by imps �ement i ng the - recommended pro in the Eugene Spr Are Transportation Plan and the - Mahlon Sweet �Fi el d Master PT an -as outlined' in Ch apter 8_(o) "on� Airport 'Land - Use " H 1475 IF686 18. Encourage research and development of products and markets resulting in more efficient use of underutilized renewable and nonrenewable resources, including wood waste, recyclable mater - i al s , and solar energy. 19. Reserve several areas within the urban growth boundary for large- scale, campus- rtype, light manufacturing uses. (See diagram for locations so designated.) 20. Review local ordinances and revise them to promote greater f l e x i - b i l i t y for promoting appropriate commercial development in resi- dential neighborhoods,,. 21. Provide for limiting mixing of office, commercial, and industrial under procedures which clearly define the conditions under which such uses shall be permitted and (1) preserve the suitability of the affected areas. for their primary uses, (2) assure compatibility, and (3) consider the potential for increased traffic congestion. 22. Continue to evaluate other sites in and around Springfield and Eugene for potential light - medium industrial and special light industrial uses as well as potential residential uses. 230 Pursue an aggressive annexation program and sere i c i.ng of designated industrial lands in order to have a sufficient supply of 'development ready' land. III -B -6 18b 86 C. Environmental Resources Element The Environmental Resources Element deals with the natural assets and hazards of the metropolitan area. The assets include agricultural land, c 1 can air and water, forest 1 and, sand and gravel deposits, scenic areas, vegetation, w i l d l i f e , , and wi 1 d 1i fe habitat. The hazards include probl ems associated with f l o o d s , soils and geology. The emphasis of the policies is directed toward reducing urban impacts on wetlands throughout the metropolitan area and toward planning for the natural assets and constraints on undeveloped lands on the urban fringe. Numerous local efforts reflect a positive attitude by the community toward the natural environment. For example, the Eugene - Springfield metropolitan area has a long history of commitment to local programs directed toward problems of air and water quality. Examples of regional parks which pro- vide significant public open space areas for the metropolitan population include Eugene's Skinner's Butte, Spencer Butte and Hendricks; Lane County's Alton Baker, Clearwater and Howard Buford Recreation Area (Mt. Pisgah) ; and .Wi l l amal ane Park and Recreation District's Dorris. Eugene has focused special planning efforts toward controlling development and maintaining the scenic and environmental assets in the south hills of the city, A tax levy passed by Eugene voters is resulting in additions to the park and open space system in the metropolitan area. Lane County, Springfield, and Eugene all contribute to the local success of the Willamette Ri v -er Greenway Program. The natural environment adds to the l i v a b i l i t y of the metropolitan area. Local awareness and appreciation for nature and the need to provide a .physical 1 y and psychologically healthy urban environment are reasons for promoting a compatible mix of nature and city. Urb areas provide a diversity of economic, social, and cultural opportunities. It is equally important to prov i'de diversity in th natural environment of the city. With proper planning, is possible to allow intense urban development on suitable, land and still retain valuable islands and corridors. of open space. open space may reflect a sensitive natural area, such as the f l oodway fringe, which is protected from development. open space - can also be a park, a qol f course, a cemetery, a body of water, or an area left undeveloped within a private commercial or residential development. Agricultural and forested lands on the fringe of the urban area, in a d d i - t i o n to their primary use, provide secondary scenic and open space values, Air and water resources are especially vital in an urban area. Internal and external factors contribute to problems associated with air quality a.nd. water quality an.d quantity, but techniques are available -to help reduce these prob l ems and make the environment more livable* III,C --1 i8b86 The compact urban growth form concentrates urban development and activities, thus protecting valuable resource lands on the urban fringe. But concentra- ting development increases pressures for development within the urban growth boundary, making planning for open space and resource protection a critical concern within that boundary. Planning can ensure the coexistence of city and nature; one example is the Willamette River Greenway. The Environmental Resources Element provides broad direction for maintain- ing and improving our natural urban environment. other elements dealing in more detail with particular aspects of the natural environment include Parks and Recreation Facilities and Environmental Design (scenic). With particular respect to waterways, the emphasis in this element is on their protection as a valuable and irreplaceable component of the overall natural resource system important to the metropolitan area. Waterways are also the subject of Section D, the Willamette River Greenway, River Corridors, and Waterways, While some repetition is unavoidable, in that-section the emphasis is - on their intrinsic value for enjoyment, active and passive use by residents of the area. The inventories conducted as the basis for this element and the goals, ob j ec- tives, and policies contained herein address numerous statewide planning goals and interpret those goals in the context of the needs and circum- stances of the metropolitan area. Findinas l . The high value placed on clean air and water by local residents is reflected in local commitments to plans and programs directed toward reducing air and water pollution. 2. The potential for air pollution in the Upper Willamette Valley. is considerable due to prevailing winds, to surrounding mountains which trap the air, and to the natural conditions caused by temperature inversions. 3. Some pollutants affecting metropolitan air and water quality originate outside the metropolitan area. 4. The metropolitan area violates - -state ' and federal air quality .standards for suspended particulates (solid and liquid par - ticles of soot, dust, aerosols and furies) , carbon monoxide (a colorl -ess, odorless toxic gas mostly resulting from incom- pTete combustion from automobile. engines). and state standards for ozone (odorl-ess, toxic gasses produced by reaction between - ox i des of nitrogen and hydrocarbons in the presence of sun- light). Suspended particulates represent the most severe air quality problem facing the Metropolitan area* 5. Existing suspended particulate air quality standards and monitoring - techniques, which are based on weight, do not adequately account for air poll - ution impacts of the finer particulates, Recent III -C -2 1 5686 evidence indicates fine particulates have a greater potential for adverse effects on human health than do larger particulates. 6. The Eugene - Springfield Air Quality Maintenance Area Citizens' Advisory Committee for Total Suspended Particulates is scheduled to complete control strategies for attainment of the Oregon sus- pended particulate air quality standards by July, 1980. Local gov- ernments, in cooperation with state agencies, are conducting an analysis of the carbon monoxide problem in the metropolitan area. Preliminary results indicate that additional control strategies will be necessary if carbon monoxide air quality standards are going to be met by December, 1982 as required. Such strategies will be evaluated by July, 1980. 7. Reduction of open space, removal of vegetative cover, and develop- ment which increases the amount of impervious. surfaces (for example, paved streets', roofs, parking lots) contribute significantly to increases in the peak volume (quantity) of urban storm runoff entering storm sewers and natural drainage ways. 8. Water pollution in the metropolitan area results from both "point sources" (municipal and industrial wastewater discharg es) and "nonpoi nt sources" (pol l utants such as oil , dust and debris which are carried into streams by storm runof ) . Water pollution is most acute in streams which have low water flow conditions during the summer months (such streams include Amazon Creek and the "Q" Street ditch) 9. Offsettin g measures can. reduce the negative effects of _urban. level- . opment on water qual- i ty and quantity problems. Examples include on -site retention of storm water, inclusion of landscaped "buffer strips" adjacent to new developments and conservation and improve- ment of streams i de vegetaton along water, 'courses. 10. Total land designated and zoned for sand and gravel extraction in the metropol -i tan area and immediately adjacent subareas appears adequate for demand through' the planning period-. 11. Sand and gravel deposits are an important natural resource necessary for construction in the metropolitan area. Nevertheless, the extrac- tion of sand and gravel can conflict with other open space and values assoc i ated w * th water resources , vegetation .recreation , wildlife habitat and scenic quality. Proper rehabilitation and reuse of abandoned sand and gravel sites can result, however, in the return of valuable land for urban uses, including open space. 12. Due to the general nature of soils and mapping, site specific analysis is often necessary to determine the presence - of III -C-3 18686 geologic hazards and the severity of soil problems which are constraints to development. Such geologic hazards exist when certain combinations of slope, soil conditions, and m0isture conditions render land unstable. 13. The statewide agricultural goal definition is based upon the U.S. Soil Conservation Service's Soil Capability Classification System. The majority of land in the metropolitan area is loca- ted on agricultural soils rated Classes I through IV and much of this area has already experienced urban development. The hillside soils are generally included in nonagricultural rated Classes V through VIII. 14. Commercial forest lands within the metropolitan area are general l o -cated in rural areas south of Eugene and Springfield with the largest concentration located southeast of Springfield, 16. The Willamette and McKenz-ie Rivers run through many jurisdictions, necessitating cooperative water management planning -.and considera- tion for downstream effects of actions taken by a single juris- diction, 16. Unless - special precautions are taken, development within the flood- way fringe (that portion. of the flood plain having a One percent per year chance of occurrence - al so known as a 100 year fl ood) i s subject to hazards to life and property from flooding,-, 17. Many portions of the floodway .fringe contain natural assets such as significant vegetation, wildlife and scenic areas and productive agricultural lands and are thus valuable for open space and recrea- tion. ' On the other hand, because of their central location, some f l oodway fringe areas, within the urban service area are important lands for urban development. 18 While development and in-filling have decreased the amount of open space (and associated vegetation and wildlife hab t at) within the urban service' area, the compact urban growth form has protected open space on the urban fringe and in rural areas-within the metropolitan area. 19. Compact urban growth results in pressure on open . space .within the current urban service area . Programs for presery i ng ' qual i ty open space wi th i n . the projected. urban service area become more impor- tant as the area grows. 20. Inventories of vegetation, wildlife, and wild 1 ife habitats resulted in the identification of significant areas, Water, wetlands and areas of diverse vegetation are the most productive wildlife habitats within 'the metropoI itan' area. over half the signif- icant vegetation and wildlife areas identified i n the inventories are already in public ownership. III -C -4 1868b 21. Open space provides many benefits in an urban area including retention of habitat for wildlife, filtration of polluted water, absorption of storm runoff flaw, protection of scenic quality, provision of recreation opportunities, reduction of atmospheric temperatures, and personal well-being-. 22. Literature search and interviews with specialists resulted in the i d e n t i f i c a t i o n of endangered and threatened (as recogn i zed o -n existing and proposed state and federal lists) pl ant and wildlife species whose normal or historic range includes the metropolitan area. Without additional comprehensive field studies (including field work),, it is not possible to deter- mine the actual existence and location of many of those species. 23. Urban agriculture,, in other words, backyard and community gardens, and interim use of vacant and underdeveloped parcels, provides economic, social, and environmental benefits to the community. 24. Where urban and agricultural lands abut, farm use management problem are frequently created . Goals 19- Protect valuable natural resources and encourage their wise management, proper use, and reuse, reflecting their special natural assets. 2. Maintain a variety of open spaces within and on the fringe of the developing area, 3. Protect life and property from the effects of natural hazards. E 4. Provide a healthy and attractive environment for the metropoli- tan population, nhiprtivPe, 1. Maintain the benefits associated with env i ronment al resources in an urban setting. Those resources include agricultural lands, clean air and water, forest lands, sand and gravel deposits, scenic areas, wildlife and wildlife habitat, and vegetation. Policies directed - toward these resources may differ depending upon whether they are located on urban, rural, or urbanizable land. 2. Maintain ` the livability of the metropolitan area by integrating open spaces and urban development by planning for a variety of public and private open spaces, and by considering the natural environment when making planning decisions'. I I-I --C -5 I$686 3 . Improve and maintain air and water quality to meet acceptable state and local standards . 4. Minimize problems associated with water quantity. 5. Manage open space areas for their diverse and multiple values. 6. Prevent damage to life and property and expenses associated with flooding and problem soils. 7. Minimize the impacts of urban development on agricultural land and other v a l u a b l e open space by promoting compact urban growth and by using urban land efficiently (e.g-., increasing urban densities) . S. Protect nonrenewable (sand and gravel) resource lands from pre- mature urban development, thus allowing for , extraction and pro- duction of that resource. Policies 1 . S p r i n g f i e l d , Lane County, and Eugene, shall consider downstream impacts when planning for urbanization, flood control, urban storm runoff, recreation, and water quality along wi t_h Willamette and McKenzie'Rivers. 2. Development shall be prohibited within the f l oodway The - f l oodway is the portion of the flood plain where high volumes - of moving water flow through drai nways or channels of a watercourse. 3. When development is allowed to occur in the fl oodway fringe, local regulations shall control such development in order to minimize the potential danger to life and property. Within the urban service area, development should result in in-filling of partial developed land. outside the urban service area, the fl oodway - fringe should be protected for its agricultural and sand and gravel resource values, its open space and recreational potential, and its value to water resources. 4. Local governments shall require site specific soil surveys and geologic studies where potential problems exist. When problems are identified, local governments shall require special design considerations and construction measures be taken .to off set the soil and geologic constraints present, to protect life and prop- erty, and to protect environmentally sensitive areas. 5. Where agricultural land is being considered for inclusion in the urban growth boundary, the least productive agricultural I a n d sh al 1 be considered first . Factors other than agricultural- soil. ratings shall be considered when determining the productivity of agricultural land, Relevant factors include ownership patterns, land . use patterns, adjacent land uses, agricultural history, availability of irrigation, and market a v a i l a b i l i t y - , III-C-6 18'686 6. Agricultural production shall b-e considered an appropri-ate interim and temporary use on urban i zabl e land and on vacant and under- - developed urban land. 7. Continued local programs supporting community gar -dens on public land and programs promoting urban agriculture on private land shall be encouraged. Urban agriculture includes gardens in backyards and interim use of vacant and underdeveloped parcels. H. Sand and gravel resource areas shall be protected from premature urban development in order to maintain existing and future sources of this important, nonrenewable resource i n close proximity to the metropo 1 i tan market. The relationship between the demand for the resource and the amount of land planned and zoned for sand and gravel extraction and processing should be closely monitored, so as to ensure the future avai 1 abl i ty of aggregate material 9. Local governments shall continue, through land use planning and special regulations, to control sand and gravel extraction and production in order to: a. Minimize negative effects on surrounding land uses and . on other natural resources; b, Require reclamation plans for extraction and processing areas which encour aqe re-use of such lands in a manner c o m p a t i b l e with adjacent land uses and adopted plans in accordance with State law-. c. Allow other appropriate uses such as agricultural production, timber production, parks and other open space uses,. 10. Lane County shall conduct studies to determine: a. The .location, quality, and quantity of, sand and gravel resources within the resource areas designated An the technical supplement. b. Conduct reanalysis of the relationship between the demand for the resource and the land planned, zoned, and actually usable for extraction, These studies should be conducted in cooperation with local sand and gravel industries, 11. Metropolitan goals relating to scenic quality, water qual i ty, vege- tat ion and w i l d l i f e , open space, and recreational potential shall be given a higher priority than timber harvest within the- urban growth boundary. III-C-7, 1 12 When evaluating the desirability of harvesting commercial timber on forest lands within the jurisdictional boundary but outside the urban growth boundary, great emphasis shall be placed on preserving scenic and water quality, as well as protection of wildlife, open space, and recreational potential., 13. Lane County shall support programs (state laws, for example) which benefit small wood l of management in rural areas. 14. Local governments shall develop plans and programs which carefully manage development on h i l l s i d e s and in water bodies and restrict development i n wetlands in order to protect the scenic quality, water quality, vegetation and wildlife values of those areas. 15. In order to improve water quality and quantity in the metropolitan area, local governments shall consider developing regal at ions or instituting programs to: a. Increase public awareness of techniques and pract -ices private individuals c an , employ to help correct water quality and quantity problems; b. Improve management of industrial and commercial operations to reduce negative water quality and quantity impacts; c, Regulate site planning for new development and construction to better control drainage and erosion and to manage storm . runoff ; d. Increase storage and retention of storm runoff to lower and delay peak storm flows; e. Utilize natural and simple mechanical treatment systems to provide treatment for contaminated runoff waters; f. Reduce, street -re l ated water quality and quantity problems; and g. 'Minimize use of toxic substances. 15. Local governments shall continue to cooperate in developing and implementing ongoing plans and programs necessary to address control strategies adopted for meeting suspended particulate, carbon monoxide, and ozone air quality standards. 17. 'Local governments shall encourage changes to state and federal air quality regulations relating to development of . fine 'particulate standards and related monitoring techniques. 1810 When planning for and regulating development, local governments shall each continue to consider the need for protection of open spaces, including those characterized by significant vegetation and wildlife. Means of protecting open space include, but are III --C -8. iS686 not limited to, outright acquisition, conservation easements, planned unit development ordinances, streams i de protection ordinances,, open space tax deferrals, donations to the public, and performance zoning, 19. Eugene shall maintain and improve and Springfield shall adopt hillside development regulations. 20. Local governments shall encourage further study by specialists of endangered and threatened plant and wildlife species in the metropol- itan area, 21. Local governments shall take steps to protect endangered and threatened plant and wildlife species as recognized on a statewide list. 22, The Plan d i a g r a m ' s intent is to include existing sand and qravel zoned areas in sand and gravel designation, 23. . Local governments shall develop policies and local controls for protection and management of wetland areas. 24. Local J ur i sd i ct i On s should work with owners of designated env i ron. mentaYly sensitive areas to encourage that reasonable actions are taken to preserve these l ands, e.g., the heronry at the confluence of the Willamette and McKenzie rivers and the site of the aster curt i s - i n .the W i l l o w Creek basin'. III-C-9 10 (0010 D. Willamette River Greenway, River Corridors, and Waterway Element The Wi 11 amette Ri ver has long, been recogn i zed in the Eugene -Spr i ngf i el d area as a valuable natural asset. A number of policy documents and pro- grams adopted by local jurisdictions have reinforced the community con- cern to preserve and protect metr'opo l i t an river corr i dors . On December 5, 1975, the Land Conservation and Development Commission adopted Statewide Planning Goal 15, Wi River Greenway. The goal sets forth the overal framework wi thin which state and local governments carry out protection and maintenance of the Willamette River Greenwa . y The goal requires Eugene, S p r i n g f i e l d . , and Lane County to adopt Greenway boundaries, to specify uses permitted within those boundaries, and indicate areas of potential acquisition - al ong the Greenway. In maki these deter- minations, local jurisdictions must gather information and inventory the nature and extent of all natural resources associated with the Willamette River Greenway. Local jurisdictions are also mandated to adopt provisions by ordinance requiring a compatibility review permit for any intensifica- tion,, change of use, or development with Greenway boundaries. The cities of Eugene and Springfield have received final Greenway boundary- approval ,Y by the Land Conservation and Development Commission for that portion of the Greenway located within their city limi Lane County has adopted interim Greenway boundaries that will be in effec until final Greenway boundary adoption, Eugene , rece� ved LCDC acknowledgement of compliance with Goal 15 on February 11, 1977. Springfield and Lane County � are both undertak -i n the work required 9 to compl with Goal 15, which is scheduled to be completed by Jul 1980, In the metropolitan area, a large portion of ' l and - within . the Greenway is i publ is ownership and existing public parks such as Mount Pisgah, Skinner's Butte, Alton Baker, and Island Park, Future proposed park acquisitions such. as the Goodpasture Island gravel ponds will further expand the opportunity for p u b l i c access and enjoyment of the river area , The three j url sdictions have also cooperated in the development of a bicycle-pedestrian trail system 'that extends along the Greenway from south of Springfield to north of Eugene and into the River Road area, This system includes three bike bridges across the river., Land al ong the Greenway in private ownership is in a variety of uses, some of which appear to provide greater opportunity than others for p u b l i c access and en joyment. R e s i d e n t i a l uses along the Greenway can provide the residents with access to the river area. Certain commercial III -D--1 18(06(o uses such as restaurants can allow customers visual enjoyment of the Green- way. Other uses such as the many industrial uses would appear to provide little if any opportunity for access or enjoyment of the Greenway. Th i s is evidenced by much of the existing industrial development along the Willamette River in the Glenwood area. Finally, i n rural agricultural areas, isolated access points can work to the' detriment of the Greenway program. In these areas, trespass and vandalism can cause a detraction in the general Greenway environment and create problems for private landowners. Due to the metropolitan scale and general nature of this Plan, it is not possible to accurately depict the Greenway boundary,. to show all allowed uses within the boundary in a compl'etel y site specific fashion, or to show areas of future pub -1 i c acquisition. The . Greenway boundaries, as adopted by the three jurisdictions, are shown in a form as accurate as possible on the auxiliary map accompanying the Plan diagram. Specific boundary designations, future acquisition areas and uses allowed within the Greenway remain the primary responsibility of the local jurisdictions. This element , . however provides the basis for a coordinated effort by Eugene, Spr i n,gf i el d, and Lane County. The Statewide Greenway goal specifically applies to the Willamette River. In the Eugene -- Springfield area, portions of the McKenzie R:i ver share equal importance. as a natural resource worthy of conservation and protection. Additionally, the metropolitan network of waterways and associated creeks and drai n ageways are important features in the metropolitan area with potential as part of an area waterways system. For that reason, while this element must specifically cover the Willamette River Greenway, it is 'important to consider the McKenzie River, where it i's situated wit -hin the area of the Plan and the i n l a n d system of waterway corridors connecting various parts of Springfield, Eugene, and Lane County to one another, Findings 1, The Willamette and McKenzie Rivers are recognized 'as valuable natural assets to the entire community. 2. In addition to-the Willamette and McKenzie Rivers, a 'number of waterways are important environmental features i the metro- - po1 itan area. These include, for example, the Springfield Mill race, Amazon creek, Fern Ridge Reservoir, and the Eugene Millrace, 3. Recently, the community has begun to realize the potential of i n l a n d waterway corridors to contribute to the livability of the area,, 4. In addition to its significance to agriculture, flood control, and fish and wildlife, Fern Ridge Reservoir continues to grow in importance as a recreational water facility. III -D -2 1(7/91 1OJOO10 Goal 5. Statewide Planning Goal 15, Willamette River Greenway, mandates local governments to establish the Greenway boundaries, allowed uses within the Greenway and potential acquisition areas. 5. Eugene and Sp`r i ngf i el d have received final Greenway boundary approval by the Land Consery at ion. and Development Commission. 7. The City of Eugene received Land Conservation and Development Commission acknowledgment of compliance with St-atewide Planning Goal 15 on February 11, 1977. Lane County and Springfield are both undertaking the work to comply with Goal 15. H. Compatibility Review Permits are required by Eugene, Springfield, and Lane County for any i nt.ens i f i cation, change of use ' or new development within the Greenway boundaries. 9. Local juridictions retain the primary reponsi b i l ity for imple- mentation of the Willamette River Greenway goal. to . The metropolitan area's river and waterway corridors require protection to maintain and enhance natural 5. scenic, env iron- - mental , and econom c qualities of these waterways. 11. The three Jurisdiction's have cooperatively developed a public park system and bicycle -- pedestrian trails along the Willamette River Greenway. 12. Residential and commercial deve opment along the Willamette River Greenway provides greater opportunity for public access and en j oy-- rnent of the river area than does i n ustr i al development, 13. Rural ' a g r i c u l t u r a l areas along river and waterway corr dor s can be damaged by isolated public access points . because of vandalism and/or trespass on private lands, 14. Experience in. other communities indicates that careful ly.pl anned and _designed residential and commercial development at designated locations along inland water corridors can be compatible with adjacent areas and the corridors themselves. 15. The current unpleasant and unsightly condition of many inland waterway systems results from neglect and uncoordinated waterway p l an n i.n g . . - Protect, conserve, and enhance the natural, scenic, env i ronmental and economic qualities of * river land waterway c o r r i d o r s . ' III -D--3 f$6�6 nh i prt i vPr, 1. Encourage use of river and waterway corridors to fulfill open space, recreation and resourc protection needs. 2. Ensure than development occurring within river and waterway corridors is responsive to and provides protection of these valuable natural assets. 3. Encourage, where appropriate and in keeping with Greenway goals, development that respects the quality of rivers and waterways, and provides a variety of opportunities for enjoyment of those resources by the public., 4. Encourage coordinated water planni and the development of the area's waterways, where appropriate as part of the area's open space and park system . Pnliripq 1. Periodical .local governments shall review Greenway boundaries, uses, and potential acquisition areas to ensure continued com- pliance with -st ate and local Greenway goals, 2. Land use regulations and acquisition programs along r i v.er corri- dors and waterways shall take into account all the concerns and needs of the community - i n c l u d i n g recreation, resource, and w i l d - l i f e protection, enhancement of river corridor and waterway environments, potential for supporting non automob i l e tr an.spor- _tat ion , opportunities for residential development, and other compatible uses. 3. Eugene, Spr i ngf i.el d , and Lane County shall continue to cooper ate in expanding water related parks and other facilities, where appropr that allow access to and enjoyment of river and waterway corr 4. Lane County, Springfield, and Eugene shall continue to participate in efforts to determine the fe as i b i l- i ty of an urban canal that would connect Eugen historic Millrace to Amazon Creek. Like- wise, Spr i ngf i el d' s efforts to improve the scenic quality of its Mill -race should be encouraged . 5. New development that locates al ong river corridors and waterways shall be limited to uses that are compatible with the natural, scenic, and environmental qualities of those water features. 5. New industrial development that locates along the Will amette , Is and McKenzie Ri v -ers shall enhance natural, scenic, and environ- mental qualities. III -D -4 1017/ 10 OU 0 7. Potential public access points in rural agricultural areas shall be carefully reviewed to ensure preservation of the Willamette River Greenway environment with special emphasis on problems of vandalism-and trespass. 8. Within the framework of mandatory statewide planning goals, 1 -oc al Willamette River Greenway plans shall allow a variety of means for public enjoyment of the river, including public acquisition areas, residential areas, and commercial areas. III -D -5 IS68b E. Env -i ronmental Design Element The Environmental Design Element is concer -ned with that broad process which molds the v ar io -us components of the urban area into a distinctive l i v a b l e form that promotes a high quality of l i f e . The Metropolitan General Plan must go beyond making the urban area more efficient and better.. organized to also ensure that the area is a pleasant, attractive, and d e s i r a b l e place for people to live, work, and play. The Environmental Design Element is concerned with how people perceive and interact with their surroundings. Perceptions of l i v a b i l i t y greatly differ between individuals, so generalizations concerning this element need to be carefully drawn. Many different indicators of livability have been identi- fied, such as the numbers of local educational,, medical, and recreational facilities, and natural environmental conditions. Not all these indicators are directly concerned with environmental design, showing that the concept of - 1 iv ab i l i ty i s i of 1 uenced by al 1 el ements of the Metropol i tan General Pl an. This element focuses on some of the features of the natural and built envir- onment that affect the-quality of life. The metropolitan area i's changing in ways that are far-reaching and diverse. Decisions which concern change have an effect on the form of the area. If we are to maintain a livable urban environment and realize the full potential of our desirable and distinctive dualities, daily decisions that concern change must be qui ded by environmental design principles, such as site planning, in combination with other planning policies. Based on concerns related to energy conservation , environmental preservation, transportation, and other issues, increased density is desirable. This increases the need for effective, detailed environmental design i n . order to ensure a high quality of life, and a high degree of livability in an increasingly dense urban environment, This area is noted for the high degree of. 1 i v ab j l i ty enjoyed by its . resi- dents. Environmental design is' a process that helps to maintain and enhance these positive attributes. Findings 1. Present and continued emphasis on compact growth increases the need. for attention to detailed, specific environmental design components such as site pl ann. i ng and landscaping of development . 2. Decisions are constantly. being made which affect the form and design of the metropolitan area -, 1 1 III-E-1 1010/ 10000 3, The location and design �of public an -d private facilities play an important role i n . giving distinctive identity and character to an area. For example, an area's character may be developed through association with a particular park, a land form, a public build- ing, an area of older homes, vegetation, or a d i st.i nct.i ve type of subdivision design, 4. Natural land features, waterways, and native vegetation provide distinctive and easily i d e n t i f i a b l e components to the metropolitan area environment . 5, The metropolitan area presently offers a variety of naturally distinctive topographic features, waterways, and vegetation that are both visually and personally accessible to residents. 6. Ri dgel i nes and water areas provide the greatest concentration of scenic sites in the metropolitan area. 7. Landscaping with trees and other vegetation prov.i des a. pleasant, distinctive, and permanent atmosphere for the metropo l i t -an area. 8. The use of buffer strips and other design features can minimize the negative env ironmental impact of certain uses, such as road- ways and parki areas, wh 1 e protecting adjacent 1 and uses 9. Local residents are concerned about the 1 i v ab i 1 i ty and aesthetic quality of r i dent i al development that changes the character of their neighborhoods. Goal s 1. secure a safe, clean, and comfortable environment which is sati s- fying to the mind and senses, 2, Encourage the development of the natural,, social, and economic envi ronment in a manner that i.s harmonious with our natural setting and maintains and enhances our quality of life. 3. create and preserve desirable and distinctive qualit'ie's in local and neighborhood areas* Objectives 1. Provide the facilities and services needed . to maintain our quality of life. Examples include educational, housing, medical, public transportation, and recreational facilities, III -E -2 q o f , � ,- 2. Encourage a greater diversity of living experiences and env i ron- ments. 3. Establish or maintain a sense of identity and character for local and neighborhood areas.. 4, shape development to suit natural conditions as much as possible. 5. Enhance views and public use of river corridors, drainageways, and prominent topographic features such as ridgel i nes and buttes, within the jurisdiction of the Metropolitan Plan, when consistent with other planning policies. Pnl iriac 1, In order to promote the greatest possible degree of diversity, a broad variety of commercial, residential, and recreational land uses shall be encouraged when consistent with other pl ann -i ng policies. Z. The utilization and retention of natural vegetation, natural water features, drainageways and landscaping. shall be strongly encouraged as part of all urban developments'. 3. The pl ant i nq of street trees shal be encouraged. 4. Public and_ private facilities shall be designed and located in .a manner that preserves and enhances desirable features of local and neighborhood areas and promotes their sense of ident 5. Carefully develop sites that provide visual diversity to the urban area and optimize their visual and personal accessibility to resi- dents. 516 Local jurisdictions shall carefully evaluate their development regulations to ensure ' that they .adequately account for env ron- mental design consi derat ions. such as, but not l to, si p l a n n i n g and landscaping of developments. 7. The development of urban design elements as part of local and refinement plans *sh al l be encouraged. 8. Local governments should consider developing design standards to ensure compatibility with existing development and the l i v a b i l i t y of major medium and high density residential developments when located i n areas otherwise characterized by lower den s i ty. III -E -3 )7197/ 1 0 b at F . Transportation Element The Transportation Element deals with surface and air transportation in the metropolitan area. The emphasis of the Transportation Element is on the rela- tionship between land use and transportation. These relationships are, in part, r e s p o n s i b l e for meeting community goals related to increasing urban public transit ridership, reducing reliance on the automobile, substituting automobile trips to other modes, such as pedestrian and bicycle, and reducing energy consumption related to use of the automobile,. The Eugene Springfield Area 2000 Transportation P l a n forms the basis for the surface transportation part of this e ement in describing future needs for people and goods movement. Projections of increased population and employment were translated into trips through the transportation planning process. This ` forecasted demand and other considerations such as safety, served as the rationale for the policies, facilities, and services contained in the Trans- portation Plan. The Transportation Plan also outlines specific transportation goals, pol- icies, and recommendations necessary to meet metropolitan transpor- tation needs through the year 2000. The Eu ene -Springfield Metropolitan Bikeway Master P l a n serves as the b a s i s for the metropolitan bikeway needs in the area. 0r i g i n al, l y adopted in 1975, this plan needs to be updated to reflect , the s al ' bikeway improvements made since 1975, to resolve some conflicts with the Transportation Plan, and to respond to continued community interest 'in b i cycling . The air transportation portions of this element are based on the Mahlon Sweet Field Master Plan The emphasis of the air transportation p o l i c i e s contained in this element is directed toward the land use issues 'of the airport environs. Findings 1. When compared to scattered urban growth the compact urban growth form increases opportunities to reduce intraurban- trip lengths, to reduce tr. an s portat -ion energy consumption, and to promote trips by means other than the automobile* 2. The current arrangement of land uses is most conducive to travel by automobile. 3. Transportation is an important determinant in the spatial arrange- ment of the metropolitan area. Land use is an important influencing the trip - making behavior of the population. III-F-1 i C3 I D I Ob6b 4. The automobile is the primary form of transportation used in the metropolitan area. 5. streets and highways are the primary facilities providing for the i ntr aurban movement of people and goods within the metropolitan area. 6. The role of urban p u b l i c transit in meeting trip needs has increased within the metropolitan area since 1974. In 1971, Lane Transit District busses carried 2 passengers on an average weekday, and in 1977 ridership had increased to 12,265 passengers (2 112 percent of all metropolitan trips) . During that time, the LTD noncapi t al budget increased from $552,000 to $5,054,000. 7. In July 1979 there were nearly loo miles of bikeways in the metropolitan area. Nevertheless, while some locations are adequately served by bicycle and pedestrian facilities, others are not. 8. Urban public transit, as opposed to rural public transit, is characterized by lower fares, a higher frequency of service, and a more dense routing pattern. 9. The b i c y c l e network is not yet completely interconnected'. which inhibits use of that system. 10. Some areas have inadequate sidewalks which inhibits pedestrian movement within neighborhoods and restricts access to the transit system, 11. The future availability of fuel for transportation uses is uncertain and subject to national and international influences. 12. R number of the policies contained in the Eugene Spring - field Area 2000 Transportation Plan are directed . toward increasing the .efficiency existing transportation s- ystems . 13. The transportation needs of ' the transportation disadvantaged population are unmet by- the services provided by any one partic- ular mode. The transportation disadvantaged are persons who, because of age, income, location, physical or mental disability, or other reasons are limited in obtaining their travel needs, 14. Location and growth in popul ation in rural areas and - satel 1 i to communities outside the metropolitan area have an impact upon transportation facilities and services within the metropolitan area. 15. Local and metropolitan bikeway plans have been adopted which outline the future needs of the metropolitan area. I H -F--2 1 0 I Y! loco 1 .16, Lane County has identified priority pedestrian facility needs for the unincorporated portions of the metropolitan area. The City of Eugene has adopted pedestrian recommendations for the city. 17. Current levels of local , state, and federal funding are inadequate to meet the surface transportation needs forecasted for 2000. 18. Mahlon Sweet Field is the major airport providing commercial passenger, cargo, mail, and general aviation services to the metropol i tan area. This airport also provides major services to Lane County residents outside the metropolitan area, 19, Some of the general (private) aviation needs ' of metropolitan residents are met by smaller airfields (Creswell, Cottage Grove, Cob -urg, Crow -Mag, Daniels, and Walker) within driving distance of the metropolitan area, 20. The Mahlon Sweet Field Master Plan contains recommendations for future improvements in-the facilities and services at Mahlon Sweet Field. 21. Mahlon Sweet Field represents a major public investment in terms of the replacement value of the airport facilities land and improve- - ment value of approximately $30 million in January 1980. The airport also contributes sub st ant al l y to t -he economy of the metropo l "tan area-, 22. In addition to the General Plan and the Mahlon Sweet Field Master Plan, Land County's Wi l l amette- -Long Tom Subarea Plan affects the land uses within the airport environs (within approximately five miles of the airport proper) . 23. Land uses in the vicinity of Mahlon Sweet Field would be rural if the airport did not influence l and use decisions, 24. Mahlon Sweet Field is essentially a self- contained facility in terms of urban services, such as water, police and fire pro- tection, and sewer% 26. With the exception of the airport proper and those portions of the-City of Eugene that . are within the airport environs, the airport environs. are not served by an urban level of services. 26. There are adequate commercial and industrial land's within the urban service area (within short travel time) and on-airport property . to serve 'the l oc at Tonal requirements of .most airport - related development. III -F -3 Goal s 1. Provide for a more balanced transportation system to give mobility to all segments of the community. 2. Serve the existing and future arrangement of land uses with efficient, safe, convenient, and economic transportation systems for the movement of people and goods. nh i Pr-t i BPS 1. Minimize the direct and indirect negative effects of transportation upon the social, economic, and natural environment. 2. Improve the service (comfort, convenience, travel time, etc.) of the - existing and planned urban public transit system to better meet the personal trip needs-of the community. 3. Maximize the efficiency and safety of ex sti ng transportation facilities and services for the movement of people and goods. 4. Promote the use of alternative modes such as bicycle, pedestrian, and par atr an s i t to. meet some of the trip needs of metropolitan residents. 5. Improve the eff i c. i ency of energy use resulting from transportation demands, 5. Provide transportation opportunities for the transportation disadvantaged. . 7, Improve the interface of local transportation systems with p u b l i c - and private intercity transportation systems. An example would P nclude the placement of a downtown Eugene urban public. transit transfer station in close proximity to intercity rail and bus stations. S. Promote I a n d use arr ang'ements 'which will optimize u - se of existing and planned transportation facilities and services and W i l l allow for choice in using alternative transportation modes. 9. Reflect changes in conditions, community needs, and technologies appropriate. for this community when developing transportation alternatives through future studies and updates of existing plans. lo. Provide for the present and future needs of commercial and general aviation and the land and facilities necessary to meet those needs,, 11. Protect the public investment at Mahlon Sweet Field by- not per- mitting noncompat i b l e development or development having noncom- patibl a operational characteristics within the airport environs. III --F -4 ioiai 10( Ob 12. Minimize airport-related impacts on the population by controlling development within the airport environs. Pn1 ir_iPS 1. The goals, policies, recommendations, and proposed facilities and services contained in the adopted Eugene Springfield Area 2040 Tr ansport.at ion Plan and the Eugene -Spr i ngf i e -1 d Metropolitan Bikeway Master Plan shall serve as the b as i & for guiding surface . transportation improvements in the metropolitan area. 2. The following recommendations are, from a transportation stand- point, geared toward reducing transportation energy demand and improving opportunities for using alternative modes such as urban public transit, bicycle, pedestrian, and paratransit. These recommendations stress the need to increase residential densities and to locate pl aces of employment and res i.dences in proximity to one another. a. Growth of downtown Eugene and Springfield as commercial, resi- dential, civic, and employment centers shall be encouraged. b. Medium and high density. residential development shall be encouraged within one mile of downtown Eugene and S p r i n g f i e l d . c. Medium and high density residential development shall be encouraged within one --half mile of transit transfer stations. d. Existing employment centers shall be encouraged to grow and diversify by allowing and concentrating new commercial, governmental, and light industrial uses where appropriate, in those centers. e. Medium and high density residential development shall be encouraged within one --half mile of ex i -sting and future empl opment centers. where appropriate, such centers shall include urban public transit transfer stations. f . Development and. redevelopment shall be encouraged 'in desig- nated areas which are relatively well served by t_he existing or planned urban public transit system. q. An active program to . develop pedestrian pathways, e.g., sidewalks, shall be encouraged, especially in proximity to major activity centers or in conjunction with other modes of travel 3. Local governments an'd- the Lane Transit District shall cooperate in the - ti -mely identification and acquisition of transit stations in . newly developed 'areas,. 4. Encourage' ncour age ' the development of auto --free urban areas and transpor- tation corridors . III -F -5 1 ai of 104006 5. New developments shall include consideration of improvements which would accommodate urban public transit and other alternative modes. 6. Because it is recognized the Eugene Springfield Area 2000 Transportation Plan is a component of this Metropolitan Area General Plan, the Transportation Plan should be evaluated and revised, if necessary, to maintain consistency and assure transportation facilities are available to serve land uses included in the Metropolitan Area General Plan. 1. The special needs of the transportation disadvantaged shall be considered when developing and implementing transportation improvements . 8. The Mahlon Sweet Field Master Plan shall serve as the guide for improvements of facilities and services at the airport. 9.. Mahlon Sweet Field shall be served with- the necessary urban ` services required to operate the airport as an urban facility. 10. Development within the airport environs but outside the airport proper and outside the urban service area shall not be provided urban services. 11. Airport - related commercial and industrial development shall be accom- modated on airport -owned property or on privately-owned industrial or commercial property designated within the urban growth boundary. 12. The portion of the airport environs outside the influence of the General Plan shall be protected through enforcement of the Lane County Wi l amette -Long Tom Sub area Plan and the ordinances and regulations supporting that Plan. The airport environs within the influence of this General Plan shall be protected .through the enforcement of the ordinances and regulations which support this General Plan. 13, Local governments shall control developments within the airport environs in order to minimize airport impacts upon the - population and to ensure that development does not interfere with the air space needs of the airport (including airport safety zoning, etc.),. 14. Land in the airport environs and 'in the urban growth boundary shall be protected from premature development in order to preserve p it for legitimate airport - related development which cannot be locate d elsewhere within the urban growth boundary. 15. The City of Eugene and Lane County shall adopt up--to -date airport safety ordinances wh -i ch regulate the height of structures, electro- magnetic and/or visual interference with aircraft, and other hazards to airport safety. III-F-6 i 9L9/ V 10 16. The city of Eugene should purchase at fair market value privately- owned land which 1) is necessary for airport improvement or 2} would otherwise have no reasonable use (agricultural operations would be considered a reasonable use of the property) for the owner because of controls placed on the land necessary to protect the airport and its operations for of public safety. 17. If expansion of the urban growth boundary is contemplated, all other options should be considered and eliminated before consideration of expanding the urban growth boundary in the area west of Highway 99 and north of Royal Avenue. 18. As an early priority, Eugene, Lane County, and Springfield w i l l develop a refinement plan for that area along Airport Road between Highway 99 and airport-controlled property, III -F -7 1868b G: Public Utilities, Services, and Faci 1 ities Element This element c o n s i d e r s the provision of water, sewers, power, education, p u b l i c - safety, and other programs the Eugene - Springfield metropolitan area needs to function properly. For the most part, these utilities, services, and facilities are provided or supervised by public or quasi-public agencies, but they can also include oth -er necessary community services of a private nature such as churches, private schools, and hospitals, As the metropolitan area grows in population and area, the demand for these services will increase substantially, requiring careful and coordinated plan- ning and management. The public's investment in and scheduling of these pub1 is f a c i l i t i e s and programs shbul d be viewed as one of the major means of imple- menting the General Plan, The urban service area concept discussed in chapter II, Fundamental Principles, is an important part of this element-, It is intended that development in the metropo 1 i tan area will require at least the "minimum level of key urban services" at the time development is completed. It is further intended that concerted efforts will be made to ultimately provide the "full range of key urban services" to these areas.* This element is also intended to provide the public and ' pr ivate sectors with policies for developmental and program decision - making regarding urban For example, development should be coordinated with the plan- ning- financing, and construction of key urban services. This will result in public and private financial savings and efficient use of utilities, services, and facilities'. Key urban services are provided in the metropolitan' area by a n umber of gov- ernmental agencies, service di str i public and quasi-public utilities, and cooperative agreements. Lane county is responsible for a number of key urban services in the. metropolitan area that are also provided county -wide, These include health and social services, solid waste management, tax collec- tion, and the courts system. Eugene and Springfield provide key urban services to the cities such as l i b r a r i e s , fire protection, improved streets, police pro- tection, and, storm sewers. -.Pub 1 i c and quasi-public utilities provide other key urb services such as water and telephone. Special service districts are also responsible in some cases for such services as water, and for others such as school s and bus service. Finally, under cooperatively established agreements between Lane County, Eugene, and Springfield, other key urban services are provided, An example of this is the County .Service District wh i.ch is administered by the Metropolitan 1 i tan Wastewater Management Comm i ss ion. It is important -to recognize the respon s i b i l ity, function, and extent of these different providers of key urban services, and to provide guide- lines for the proper operation, improvement and . expans ion of key urban * See Recommended P o l i c i e s .7 - and -8 on. pages II-B-4 and 5 . III --G -1 184810 sery i ces i n line with the compact urban growth form and- urban service area concept of the General Plan. In p1 ann i ng for provision of key urban services, it is useful to keep in mind the distinction between the "current urban service area" where a minimum level of urban services is avai or will be within the near future, and the "projected urban service area' which is the estimated area within which services will be needed to provide for development needs over the long term . It is necessary to provide key urban services in a sequential manner that recognizes the difference between the current and projected urban service areasO In planning and programming for pub 1. i c utilities, services and facilities, present and near future needs of the metropolitan area should be met in a coordinated arrangement, recognizing the long-term, ultimate needs, and service area. Findings 1. Urban expansion accomplished through in-filling within and adja- cent to ex i st i-ng development inside the current urban service area and in an orderly unscattered fashion permits new development to utilize existing utilities, services, and facilities or those which - can be easi extended, thus minimizing the public cost of premature service extensi 2. -Urban services are provided to the metropolitan area by Eugene, Springfield, Lane county, public and quasi - public utilities, special serv ice districts, and by joint cooperative agreements. 3. In a few - instances there is over lap in public services, utilities and facilities, or i l - logical service boundaries, that prevent the most economical d i s t r i b u t i o n of those utilities, services, and facilities. 4. Portions of the urban area lack certain key urban services. 5. The cost of providing even basic key services, utilities and facilities to existing and future development in the metro %o l - i - tan area is significant. 6, The Sewage Master Plan has been replaced by the Metropolitan waste- water Management Program and the adopted Eugene -Spr i n i el d Metro- po l i t an Area waste Treatment Management . Alternatives report (208 "Faci lities" Plan) . The Dater Master PI an was never adopted on a metropolitan-wide basis, even though the water utilities use i't as a basic planning resource. 7, when key � urban services, such as water, are provided to areas outside the projected urban service area, increased pressure for urban development in rural areas occurs, 8. The population projections in the Eugene - Springfield Metropolitan Area waste Treatment Management Alternatives Report (208 "Facilitie Plan) are compatible with those for the metropol area. III-G-2 M � 9. Large institutional uses, such as universities and hospitals, present complex planning problems for the metropolitan area due to their location, facility expansion plans, and continuing housing and parking problems. 10. Due to the i ncrea.se of child persons as a percent of the total population and the level off from a downward trend of fertility rates, overall metropolitan school enrollments are pro- jected to increase both in terms of total number and i n the rate of growth through the rest of this century-. However, projected school enrollment increases will not be evenly distributed among the three metropolitan school districts: The Eugene d.i str i ct w i l l probably continue to decline into the early 1980's before beginning to increase; Springfield, Bethel, and private schools -will likely follow the ov er al metropolitan trend. 11. Growth patterns do not always respect school district boundaries. For example, natural cycles of growth and neighborhood maturation result in uneven geographic growth patterns in the metropolitan area, which cause a d i s p a r i t y between the location of some schools and school children. This results in some fringe area schools exceeding capacity while some central city schools are under capacity. 12, adjustments to attendance area boundaries, double shifting, addi- tions to exi.sting facilities, use of portable classrooms and busing are being used by metropolitan area school districts to maximize the use of present facilities and delay new school construction. 13. Elementary and community schools represent important features td residential neighborhoods and a lack of such facilities can reduce the 1. i v ab i 1 i ty of an area in terms of neighborhood _ needs . 14. Residents of central city neighborhoods have identified the presence of elementary and community school facilities as important contri- butors to the stability of their neighborhoods and to the ability of neighborhoods to attract a range of families and- households, including families with school -age children. 15.. There are no significant increases anticipated in either , the over- - al all enrollment or work force at the University of '. oregon . New facilities are planned to meet the needs of the various departments and not to create additional capacity, 16. Lane Community College plans no new f a c i l i t i e s on the main campus beyond those included i n the school master plan .Increased enroll- ment will be accommodated through expansion of off- progr III -G--3 i8b�6 Goal Provide and maintain p u b l i c utilities, services, and facilities in an orderly, and efficient manner, Objectives Furnish guidelines for public facility programming and decision- - making that will result in lower public and private expenditures, 2. Provide public utilities, services,, and facilities to serve existing development and closely coordinate them with the land use elements of the .General Plan as a means of encouraging orderly and sequential growth, 3. Reduce and, if possible, eliminate the problems created by over- lapping service areas and/or illogical service boundaries. 4. Optimize the utilization of existing facilities, 5. Generally reduce public subsidy for utilities and facilities in new devel oprnent . b. Provide at least the minimum level of key urban services to al l urban development within the metropolitan area-, 7. Except for rur fire protect-ion districts and stand and . rural el ectr i - fication systems, discourage extension or expansion of si -ngle services, utilities, or facilities to Outlying areas, 8. Strive for continued cooperation between major institutions, such as universities and hospitals, and local planning agencies, Policies 1, In general , the amount of pub l i c subsidy for pub l i c ut i l i t i e s, ser- vices., and faciliti . such as schools, sewers, and streets, shall be reduced, . New development should help support construction of new public utilities, services, and facilities through methods such as , systems development charges, taxes, land donation, or payment of fees in lieu of land donations. This does not preclude subsidy where a development will fulfill goals and recommendations of the Plan determined by the local jurisdiction to be of particular importance or concern, 2. -Sewer and water service shall not be extended beyond the urban growth boundary except to:- a, The Mahlon Sweet Field Airport, a public facility serving the entire metropolitan area. b, An exi sting devel opment outside the urban . growth boundary when it has been determined that it poses an immediate threat of public health or safety to the citizens of the metropolitan area that can only be remedied by extension of the service. I I I -.G -4 I V�10 In addition, the cities may require annexation as a prerequisite to extending these services in any instance. 3. R system of user charges for public services, utilities, and facilities to cover operation costs and the improvement or replacement of obsolete facilities shall continue to be imple- mented where appropriate. 4. In those portions of the urban service area where the full range of key urban services is not aVai l abl e, metropolitan area capital improvement programming (planning, programming, and budgeting for service extension in an orderly and efficient manner) shall be developed 'and ma i nt ai.ned . Such a coordinated capital improvements program shall address geographic phasing. 5. Efforts shall be made to reduce the number of unnecessary special service districts and to revise confusing or illogical service boundaries, including those that result in a duplication of effort or overlap of service. When possible, these efforts shall be pursued in cooperation with Springfield and Eugene. 5 . In addition to physical, economic, energy, and social considera- tions, timing and location of urban development within the metro- politan area shall be based -upon the current or imminent a v a i l - a b i l i t y of a minimum level of key urban services. 7. Facility . and program planning i n the metropolitan area sh al 1 use the General Plan as a basis for decisions to ensure that the needs of the metropolitan area are met in an orderly and efficient manner 8. Efforts shall be made to mitigate the impact of residential growth on the metropolitan area's schools. Cities shall -ncour age a mix of dwelling unit types and phasing of single - family residential construction. School districts shall continue to meet peak school child enrollment .demand through a variety of means, thus possibly reducing or postponing the need for new, permanent school facilities.' 9. Major institutions, such as universities and hospitals, shall con- tinue joint planning coordination with local pl anninq agencies. 10. Support financial and other efforts to provide elementary and cbm-- mun i ty schools in central city areas in order to maintain and increase the attractiveness and stability of those areas for residential purposes. ll. The school districts shall address the possibility of adjusting boundaries where they do not reflect the boundary between Eugene and Springfield or where a single, otherwise internally cohesive, area is divided into more than one school district. III-G-5 IQLQ1_ I WO U iv 12, - Encour age the use of water treatment, solid waste, and sewage disposal systems that are energy efficient and environmentally sound. 13, The utilities responsible for provision and delivery of water to metropolitan area users shall examine the need for a metropolitan- wide water master program, recognizing that a metropolitan-wide system will require establishing standards as well as coordinated source and delivery systems, 14, Special agencies and districts operating in the metropolitan area, and Springfield, Eugene, and Lane County shall prov i.de one another the opportunity to review and comment on proposed public f ac i l t i es , plans, programs, and public improvement projects or changes thereto that may affect one another' s area of responsibility. 15. Industries that make significant use of the resources recovered from the Glenwood solid waste transfer facility should be encouraged to locate in that vicinity, 15, Upon adoption of the Plan, Eugene, Springfield, and Lane County shall appoint a joint 'elected official task force to study. and - determine which city or cities shall have ultimate responsibility for providing. key urban services through annexation to the Glenwood. area- and to study the land use designations in Glenwood. III --G -S 18686 H. Parks and Recreation Facilities Element A parks and recreation program with sufficient diversity to meet the needs of the citizenry is an essential ingredient t-o enhancing the livability of a community. The Eugene - Springfield metropolitan area has a long history of supporting parks and recreation programs, and this plan further strengthens that commitment. The main types of parks and recreational facilities that have been developed are: 1. Regional-Metropol itan Parks Regional - metropo 1. i tan parks serve the entire metropolitan pop- ulation as well as the surrounding population and provide a variety of recreational opportunities including water areas, trails, picnic areas, recreational facilities, and natural areas (e.g., Alton Baker Park) . 2. Community Parks Community parks serve surrounding metropolitan residents with a variety of spec -i al i zed recreational. facilities and programs such as swimming pools, tennis courts, and community centers (e.g., Amazon Park and Iii l l aural ane Park), 3. Neighborhood Parks Neighborhood parks serve the .various neighborhoods within the metropolitan area. Neighborhood parks may include courts and fields for active recreation. 4. Play Lots Play lots serve residents of surrounding subdivisions and are normally within walking distance of their users' homes 5. Community Centers Community centers are usually located within community parks. They emphasize recreational activities such as swimming, tennis, art, music, etc, 6. Neighborhood Centers Neighborhood centers, some of which are community schools, emphasize social civic, and educational programs for young people and adults. 7. special Recreational Facilities Special recreational facilities include, for example, public and private golf courses, tennis courts, and swimming pools. rA I I I -H --1 i86K� Parks and recreation facilities and programs are administered by park and recreation agencies in Eugene and Lane County and by two park and recreation districts (River Road and Willamalane ). Among these agencies and districts, a wide variety of parks and recreation programs, encompassing those previously mentioned, are provided for the residents they serve. In addition, the park and recreation agencies and the metropolitan school districts have combined their resources and coordinated efforts to provide open space and parks and recreation facilities in conjunc- tion with the schools. Also,, in recent years, private recreational facilities such as swim - mi ng pool s and tenn i s and racquetbal 1 courts have been devel aped. Several private golf courses have been in operation in the commu- nity for a number of years. Findin s 1. Increases in leisure time, income, transportation energy costs, and projected population growth indicate that there will continue to be a s i g n i f i c a n t demand for a diversity of park and recreational opportunities in the metroplitan area. 2. Regardless of what standard is used, it is becoming increasingly difficult for local park agencies to meet the. demands and needs of the community for parks and recreation f a c i l i t i e s . The major problems include: a. Areas developing without park and recreation facilities available for the residents, b. competition for limited available financial resources between the need to purchase park land to meet future demands (before the land is no longer available) and the need to develop existing park land to meet current demand, C .. Competition for limited financial resources to provide the diversity of park and recreational programs demanded by the community's citizens. d. Land suitable and available 'for park' and recreation facilities often competes with other land use activities and needs in -the metropolitan area. 3. For the 'Purpo of the Metropolitan Area General P l a n , the existing level of parks and recreation facilities in this community were compared to the standards of the National Recreation and Park Association (based on acres or fac i l ties per thousand population} . III -H -2 � r When compared to NRPA standards, there is a gap between the overall supply and demand-for park and recreation faci in this com- mun i ty. This gap is projected to increase unless additional park land and recreational facilties are provided. a. Based on NRPA standards, there are sufficient gross acres of regional -metropolitan park land to meet a future metropolitan population of 245, 000. But gross acreage does not accurately reflect the adequacy of regional -metropolitan parks to meet both active and passive recreational needs, and a more detailed analysis of regional park supply and demand is necessary. b. Based on NRPA standards, the supply for community land is less than what is currently needed. C . Based on NRPA standards, the supply of neighborhood parks is less than what is currently needed. d . Based on NRPA st andards, there are enough communi centers to meet demand of a future metropolitan population of 195, 000. However, existing community centers are not evenly distributed throughout the metropolitan area. e, Based on NRPA standards,, .there is a deficiency of neighborhood centers. f. Based on NRPA standards, the metropolitan area currently lacks an adequate number of swimming pools, tennis courts, golf courses, and other recreational facilities (such as ball fields, all-purpose courts, etc.). 4. While the NRPA standards provide a useful comparison, they should not be used as the determinant of the adequacy of the park and recreation facilities provided by each jurisdiction. A determina- tion of the adequacy must be .based not only on total acres or facilities, but also on the va -lues of the residents, the location of park and recreation f a c i l i t i e s in relation to the residents each is intended to serve, the specific function each park is intended to serve, and the role private facilities play in pro- viding recreational opportunities. 5. Providing adequate park and recreation facilities is made more difficult by the lack of a detailed metropolitan -wide parks and recreation analysis and plan that incorporates a methodology reflecting demand character i st cs of this local area. Such an analysis and plan would serve - a number of essential functions, including: a -. The development of a complete inventory of park and recreation faci lities; the development of local standards for use by the III -H--3 18686 local governing bodies in determining the type and level of parks and facilities that are needed; the development of demand effectiveness measurements; and development of capital improvements programming and other implementation strategies. b. Indication of how much land is needed for each type of park (reqional, community, neighborhood, etc.); and i n d i c a t e what types of activities should be provided in each park (e.g., active recreational opportunities such as ball fields, tennis courts, and playgrounds vs. passive recreational opportuni- ties such as hiking trails) . c. Indication of how the resources of the local and state park agencies can be coordinated and maximized in order for each agency to provide the level and type of recreational oppor- tunities for which it is best suited. d. Indication of where the advance purchase of park land should occur in anticipation of future demand. 6. Private recreational fac i l t i es supplement and help-meet the demand for a variety of rec're at i on al opportunities. Goal Provide a variety of parks and recreation facilities to serve the diverse needs of the community's citizens. nhiartivac 1. Coordinate regional -metropolitan parks- planning and development among local and state agencies. 2. Ensure that regional -metropol itan parks planning provides, a balanced variety of park and recreational opportunities. 3. Develop local standards, measures, and implementation techniques to determine the level and types of local park and recreation facilities necessary to serve the needs of the residents of each jurisdiction, 4. Develop park sites and recreation facilities in the manner best suited to serve the diverse i ntere.sts of local residents and in areas of greatest need. 5. Close the gap between the current supply of park and recreation facilities and the projected demand. 6. Expand opportunities for the development of private recreational facilities. III -H -4 i �6�6 Pnlir_ipq s 1. Develop a system of regional - metropolitan recreational activity areas based on a facilities plan for the metropo l i tan ' area that includes acquisition, development, and management programs. The plan and system should inc reservoir and hill parks, the Willamette River Greenway, and other river corridors. 2. Prepare local parks and recreation analyses and plans, coordi- nated on a metropolitan level, in each jurisdiction, 3. Accelerate the acquisition of park land in projected growth areas by establishing guidelines determining where and when developers w i l l be required to dedicate land for park and recreation fac i l - i t i es, or money i n lieu thereof, to serve their developments 4. Encourage the development of private recreational facilities. 5. Develop mechanisms and processes by which res of an area to be served by a neighborhood park , neighborhood center, or. play lot can participate in the design, development, and maintenance of the facili G, All Metro area parks and recreation programs and districts shall cooperate to the greatest possible extent in the acquisition of public and private to support their operations. III -H--a I . Historic Preservation Element The metropolitan area has experienced,, and it appears w i l l continue to exper- ience, growth and change. On the other hand, p u b l i c interest and commi tme'nt to historic preservation has been increasing, at least partly due to recogn - tion that historic structures, sites, and areas which provide a tangible physical connection with the past are a nonrenewable resource. This link with previous times provides a sense of permanence, continuity, and perspective to our lives as well as a context within which change occurs. Historic structures can enrich our lives by offering architectural diversity to the visual environ- ment and provide tangible links to the future. Findings 1. Programs and publications that identify sites, structures, objects, and c u l t u r a l areas and activities of historic significance serve as - a visual and educational experience for the public, 2. Structures and sites of historic significance contribute to an area's ability to attract tourism. 3. The metropolitan area has an important heritage of historic sites, structures, and objects worthy of preservation, 4. When positive measures are not taken, visible evidence of ties to the past and reminders of our heritage disappear, 50. To varying degrees, Springfield, Lane County, and Eugene are cur- rently designing and implementing programs of historic preservation and awareness. 6. While several archaeological' rchaeol og i c al ' sites are located i n the metropolitan area, the value and significance of only one has been determined, There remain many sections of the metropolitan area in which no surveying has been done to locate archaeological sites. 7. Historic preservation programs generally allow continued and changing occupancy of historic structures and sites. 8. Beginning with the Antiquities Act of 1906 and through the present time, both the federal and Oregon state governments have expressed an interest in and enacted l aws' providing for the protection and preservation of sites, structures, objects, and areas of historic significance. 9, Depending on the nature and condition of an individual structure, rehabilitation rather than replacement may be less costly per square foot, more labor intensive, and less energy consuming, thereby resulting in net savings. III-I-1 Goal Preserve and restore reminders of our origin and historic development as links between past, present, and future generations. rk L _ & ' 1. Develop and expand public awareness of the metropolitan area' - s origin, development, and history. 2. Encourage preservation and restoration of sites, structures, objects and areas of cultural, historic, or archaeological significance for the enjoyment and knowledge of present and future generations'. Policies 1. Adopt and implement historic preservation policies -, regulations., and incentive programs that encourage the inventory, preservation and restoration of structures, landmarks, sites, and areas . of cultural, historic, or archaeological significance, consistent with overall policies. 24- Institute and support projects and programs that increase citizen and vi s i for awareness of the are -a' s history, and encourage citizen participation in and support of programs designed to recognize and memorialize the area's h i story. 3. Explore the feasibility of a metropolitan non- prof'i t historic preservation deve opment organization to- bring together pub l i c and private funding. sources. 4. Periodically review state and federal programs intended to - assist in p reservation of historic and archaeological sites for possible use in connection with local implementation programs. 50 Monitor and evaluate the effect-of these actions on other adopted policies the metropolitan area as a whole. III --I -2 J. Enemy Element The Energy Element deals with the conservation and efficient use of energy in the metropolitan area and is meant to provide a long -range guide to energy -- related decisions concerning physical development and land uses, The use of energy is essential for the development and operation of the urban area. Many vital processes, such as commercial and industrial activities, transportation of goods, and the lighting, heating', and cooling of buildings depend on energy supplies for their operation. In addition, our daily lives are greatly influenced by the consumption of energy for a vast number of purposes such as automobile and home appliance use. As the cost of energy supplies increases and . the availability of new energy sources decreases, we will Continue to experience a greater need for con- serving and efficiently using existing supplies. Many energy supplies are nonrenewable in that they are only produced once, as in the case of metals, or take hundreds of thousands of years to be produced, as in the case of petroleum and other fossil fuels. It is especially important to efficiently use and conserve energy sources in order that future generations will not unnecessarily suffer by their shortage or absence. Conservation makes p o s - s i b l e the use of energy sources to serve greater numbers of people and also reduces the immediate need for the development of new centralized fac i l t i es such as those required for the large -scale generation of electricity, While a n umber of specific decisions relating to energy can be made using the energy policies in th -i s element, it is not written at the level of detail that would be required for it to serve as a Comprehensive Ener Plan for the metropolitan area. Examples given i n t h i s element are used to illustrate statements and are not meant to be inclusive, other s p e c i f i c examples that reflect the same statement can also be applied by the reader % As developments and data relating to energy production and conservation are rapidly changing, the findings, objectives, and policies of the Energy Element should be frequently monitored to ensure their relevancy. Findings 1, Energy conservation measures can serve as an energy source by making limited energy supplies serve greater numbers of users. 2. Many energy supply and demand factors which influence the metro- politan area are beyond local control. An example is the petroleum supply decisions made by OPEC nations. Furthermore, at the present III -J -1 I .w rate of population growth and energy consumption, it cannot be stated with certainty that overall energy supplies will be adequate to meet demand through the planning period, i . e . , a metropolitan population increase to 293, 700. 3. Based on metropolitan population projections and current energy use patterns, peak electrical energy demand for the metropolitan area will nearly double by the end of the planning period i , e . , a metropolitan population of 293, 740. Energy efficient land use patterns, conservation efforts, and load management would reduce projected demand . (The highest energy demand to date was on February 2, 1979, when the combined systems of EWFB and SUB exper- ienced a peak hour demand of 703,000 kilowatts.) 4. Energy savings can be obtained by utilizing forms of energy other than electricity or fossil fuels' for space heating. 5. Recent trends and analysis i n d i c a t e that the relative cost of non- renewable energy supplies, such as petroleum, and the relative cost of the majority of the electric power received by the. metropolitan area, will increase in the future. 5 . Wood fiber presently provides a s i g n i f i c a n t amount of energy to the metropolitan area. The continued utilization of this alternative energy source will be influenced by the economic and resource conditions affecting the lumber industry and by the air - quality conditions and regulations affecting the metropolitan area. 7. Municipal waste can serve as an indirect energy source .th the energy savings resulting' from the recycling of nonrenewable resources such as metals and glass containers. H. Solar energy can provide a s i g n i f i c a n t amount. of . the energy' used for the metropolitan area hot water heating and can provide cost- effective supplementary space heating when used in basic, simple, passive systems. 9. Approximately 25 percent of all energy in the metropolitan area is consumed by automobile use. This i's the largest amount consumed by any specific use. 10. Electricity supplies over 60 percent of the energy consumed for all residential uses in the metropolitan area. 11. -An. electrical generation facility which is powered by part of an industrial process (cogeneration) i s presently operating in the metropol itan area. Additional opportunities for cogeneration facilities exist in the region. 12. Waste heat from metropolitan area industrial processes can be used for space heating of nearby buildings. III -J-2 1$ioXb 9. Encourage the maximum amount of energy conservation associated with automobile use* lo. Encourage industrial activities that use energy in the most effi- cient and productive manner. 11. Encourage the minimization of energy consumption in determining the placement, density, and design of all types of urban land uses. 12. Continue and support energy conserv i on efforts that are being undertaken by the public and private sector-, 13. Continue and support efforts to increase public awareness of energy conservation issues and of methods to effectively utilize solar energy and other renewable energy supplies. PnliriQS 1. It - 'i s recommended that the coordinated development of , a detail metropolitan. energy management plan or plans be undert a - ken with the active participation of local jurisdictions in order to address l ocal energy issues in greater depth than can be attempted in a metropolitan' general 'plan . The products of this additional process would be considered as part of all metropolitan area planning p o l i c i e s in shaping the development of the region and should be continually monitored and reviewed to-ensure their continued relevancy. Most of the energy data needed for this planning effort can be best be collected and stored-by a unified energy, data bank that would, at a minimum, serve the entire metropolitan area. This effort .should at least: a. Establish the current demand and projected energy demand for the various sectors of the economy in the metropolitan area. b-,' Inventory the current supply sources of energy for - the metro area, include projected sources, renewable and nonrenewable, centralized and decentral,.i zed , . and the price projections for each source. c, Coordinate the development of a un i form. reporting system to be used by the various energy suppliers in the metropolitan area in order to generate an ongoing, accurate data base for energy planning. d. Examine the potential economic impacts to metro area residents resulting from projected . energy demand, supply and . price . I I I,J,4 i86�G 13. Over 75% of the total energy u t i l i z e d - by metropolitan area industr y is consumed by the three industrial categories of metal manufacturing, chemical manufacturing, and the paper industry. 14. Schoo buildings use over half of the energy nsumed b the �.� y _ metropolitan area government sector, but less than two percent of the total energy consumed in the metropolitan area. 15. Transportation and space heating consume the l est ro orti g proporti on of . energy used in the commercial sector. Goal 1, Maximize the conservation and efficient utilization of all types of energy. 2. Develop environmentally acceptable energy resource alternatives. 1. Utilize cost- effective energy conservation techniques as determined by methods which consider initial operating, replacement and decommissioning costs of facilities - in other words, life cycle costs. 2. Maintain options for the potential use' of energy conservation - methods, such as increased building we ather i zat i on and some forms of public transit, that are not cost effective at the rpesent time, 3. Minimize negative e.nv i ronmental effects associated with energy production and use, and encourage the u t i l i z a t i o n of energy sources having the least negative, environmental impact, 4. Encourage the utilization of renewable energy sources in order to conserve nonrenewable energy resources. 50 Promote the recovery and reuse of nonrenewable resources such as metals, as an energy conservation measure.. 6. F a c i l i t a t e the permanent use of solar energy and other decentralized energy sources to d.i spl ace centralized energy supplies and diversify energy production, 7. continue and intensify efforts to allocate land uses in a manner that creates a compact growth form for the metropolitan area. 8. Promote policies that minimize the energy consumed for heating c o o l i n g , lighting, appliance use, and other processes in commercial industrial, and residential bui l d i ngs , III -J--3 1868 e. Determine the impact of current l and use p o l i c i e s and actions on energy use and reaffirm or point out adjustments to land' use policies, regulations and activities as necessary to reflect these considerations, f. Research revisions to regulations which would have a positive effect on the use of renewable, decentralized energy sources, such as solar energy. g . Research land use patterns which would f a c i l i t a t e the use of centralized, small-scale energy generation and storage in residential, commercial, industrial and mixed -use applications. h. Specify implementation processes. 2. Carefully control through the use of operating techniques and other methods energy related actions such as automobile use in order to minimize adverse air quality impacts. Trade -offs between air quality and energy actions shall be made with the best possible understanding of how one process affects the other. 3. Land a l l o c a t i o n and development patterns shall permit the highest possible current and future utilization of solar energy for space heating and cooling, in balance with the requirements of other planning policies. 4, Encourage development that takes advantage of natural conditions such as microcl imate, and u t i l i z e s renewable energy supplies such as solar energy to m i n im i ze ' nonrenewab 1 e, and overall energy consumption. 5 . Resource recovery f a c i l i t i e s may serve as a valuable energy source. Their operation and refinement should be investigated by all metro- politan area jurisdictions. Source separation of recyclable ma- terials from waste should be encouraged as a separate, related. energy conservation measure* 5, Local jurisdictions and utilities shall examine methods of ex- panding existing residential, commercial and industrial energy conservation programs, one potential method would be offering advice concerning the use of solar water heating systems. 7. Encourage medium and high density residential uses when balanced with other planning policies in order to maximize the efficient utilization of all forms of energy. The greatest energy savings can be made in the areas of space heating and cooling and trans- portation. For example, the highest relative densities of resi- dential development shall be concentrated to the greatest extent possible in areas that are or can be well served by mass transit, par atr an s i t and foot and b i c y c l e paths, III -J -a i8bab 8. Commercial, residential and recreational land uses shall be integrated to the greatest extent possible, balance with all planning policies, to reduce travel distances, optimize reuse of waste heat, and optimize potential on --site energy generation. g. Encourage industrial activities that use the smallest relative amounts of nonrenewable energy. lo. Support efforts to develop industries that have a relatively high potential for utilizing renewable energy sources or waste heat % 11. Encourage the use and development of cogenerat i ve and . decentral i zed energy supplies for commercial and industrial purposes in an environmentally beneficial manner. 12. When practical, the government sector should take the lead in - demonstrating and implementing a.- Cost effective use of renewable and decentralized energy sources such as solar space and water heating systems. b. Selection and efficient use of energy saving vehicles. 13. Continue and encourage cooperation and commun i c at.i on between citizens, utilities and local, state and federal governmental entities concerning energy -- related issues. 14. Encourage efforts at the state level to promote .ener.gy_ conser- vation, such as in the statewide building code, utilize renewable sources of energy, and develop equitable energy allocation systems . III-J-6 I gln 8 4 1 � %W 9%W K. Citizen Involvement Element Active, ongoing and meaningful citizen i nvol vement i's an essential in to the development and implementation of any successful planning program, C i t i z e n s in the Eugene - Springfield metropolitan area have participated in, and articulated their concerns-on, planning ac- ti vities and decisions as individuals and through various private in- terest groups; community and neighborhood organizations, and citizen advisory committees. A c i t i z e n s ' adv -i sory committee was established for the 1990 Plan and was an integral part of that plan's development. The adopted 1990 Plan included a recommendation that a permanent "Citizens' Advisory Com- mittee" be-established. That recommendation was implemented by the three governing bodies when the Metropolitan Area Planning Advisory Committee was established. (MAPAC consists of 21 members, seven from each jurisdiction.) MAPAC's responsibilities have included monitoring that use and implementation of the General Plan, serving as the L -COG advisory committee on natural resources, and reviewing and commenting on planning issues of metropolitan-wide significance. In recent years, citizens' advisory committees have also been estab- lished to provide the c i t i z e n s ' perspective on a wide variety of spe- cific planning issues (e.g., 'Transportation, Greenway, Solid Waste Management) . This emphasis on citizen p a r t i c i p a t i o n has been recognized at the state level where the Land Conservation and Development Commission adopted c i ti zen involvement as a mandatory statewide planning goal. Eugene, Spr i ngf i.el d and Lane County, in accordance with LCDC' s Citizen Involve- ment goal., have each appointed commi tt-ees for citizen involvement - whose responsibilities include developing, monitoring and evaluating the citizen involvement programs in their respective jurisdictions and recommending programs and techniques which will increase citizen par - tici pation. For the purposes of th.i s Metropolitan Area General Plan update, the three governing bodies designated MAPAC as the citizens' .committee for coordin and-soliciting citizen input on the update process. MAPAC' s functions included reviewing and evaluating the plan document, making recommendations on its various components, and developing and coordinating a citizen i nvol vement program for the update process. Findings 1. The Eugene-Springfield metropolitan area has a history of encour- aging and recognizing citizen i nvol vement as an essential element in its planning program. III --K -1 i b�Oob 2. Citizens' advisory committees have been established to provide the citizens' perspective on a variety of metropolitan -wide planning and related issues. 3. There is presently no- readily i d e n t i f i a b l e and adopted compre- hensive metropolitan -wide citizen involvement program. 4. Spr i ng.f i e l d , Lane County and Eugene each has a committee for c i t i - z e n involvement i n the planning process. There are also several citizen advisory committees involved with individual components of the process such as housing and transportation planning. 5. MAPAC has been designated as the citizen organization for devel- oping and conducting a citizen involvement program for the Metro- politan Plan upd ate process. 60 The governing bodies have furthered the i r efforts at citizen in- vol vement through the development and support of community neigh- borhood organizations, community surveys, citizen involvement advisory committees and various media techniques for-citizen in- vo l vement and education . 7. How effective the General Plan will be depends to .a large extent upon how much sup - port is provided by the metropolitan area resi- dents in seeing that the Plan is implemented. 8. Successful plan development and implementation i dependent on a joint effort of ci tizens, publ and semi - public agencies and elected officials. 9. Benefits of an ongoing metropolitan area planning advisory com- mittee to prov -ide citizen perspective include an accumulation of knowledge and experience in the planning process - Goal Continue to develop, maintain, an -d refine programs . and procedures that maximize the opportunity for meaningful, ongoing citizen involvement i n the community's planning and planning implementation processes consistent with mandatory statewide planning standards. nh riPrt i vPS 1. Promote and strengthen communication and coordinat among various c.i t i ze'n s' organizations, bus iness, industrial and other groups in the community., and between these groups and government, 2. Insure adequate opportunities and provide adequate support for citizen i nvol vement in metropolitan planning and related issues. I I IA-2 8686 3. Insure that the roles and responsibilities of the various citizen advisory committees remain effective and responsive vehicles for citizen involvement, 4. Maintain a permanent citizens' advisory committee to provide the citizen perspective on metropolitan -wide planning issues, Policies 1. Maintain an on- -going metropolitan area planning advisory committee to the govern i nq bodies of Springfield, Eugene and Lane County to provide the citizens' perspective on major five -year updates, interim reviews and Plan amendments; monitor and evaluate the use and implementation of the Metropolitan Plan; and review and comment on planning activities of metropolitan -wide significance. The bylaws of the committee shall be approved by the three governing bodies, 2. Maintain and adequately fund a variety of programs and procedures for encouraging and providing opportunities for citizen involvement in metropolitan area planning issues. Such programs should provide for widespread citizen involvement, effective communication, access to technical information and feedback mechanisms from policy makers. These programs shall be coordinated with local citizen involvement programs and shall be prepared on the metropolitan level by the metropolitan-wide citizen planning advisory committee, 3. Improve and maintain local mechanisms that provide the opportunity for residents and property owners in existing residential areas to participate in the implementation of policies embodied in this Plan that may affect the character of those areas . III-K-3 )9694 CHAPTER Iv PLAN REVIEW, AMENDMENT, REFINEMENT AND JURISDICTIONAL RESPONSIBILITY In order for the Metropolitan Area General Plan to serve as an effective policy device to guide change and development, it must be adaptable to the changing circumstances and needs of the community, Changes to the Metropolitan Area General Plan may occur (1) as the result of periodic review in between major five --year updates, and (2) amendments initiated by any one of the three governing bodies when such amendments are necessary to provide additional guidance. There are two boundaries described in the Plan which are pertinent to the process of Plan review, amendments, refinements, and - juri sdictional responsi- bility. These boundaries (defined in Glossary, Chapter v) are: - -Urban growth boundary -- Jurisdictional boundary A. P l a n Review Review and evaluation of the Plan should include an analysis of goals, objectives and policies to determine whether or not they are being attained and implemented and a review of the basic assumptions, data and findings to identify changes in circum- stances that may have occurred. The 1990 Plan recommended. annual reviews with major updates every five years. However, two reviews actually occurred prior to the first five year update. In retrospect, annual review of _the General Plan appears to have been overly ambitious. Because the General- Plan undergoes a major update every five years, a single review midway between updates would be more realistic and can be supported for ,the following reasons: - (l) time is needed to work with the Plan and develop potential areas for review; (2) the data to conduct a review must be readily available, and more frequent reviews do not allow time to gather necessary data; (3) a review is a major under- taking and, given other ongoing planning activities, it is ques- tionable if the local governing bodies can commit the financial and staff resources for more frequent reviews; (4) governing bodies do not have the time to consider plan reviews on such a frequent schedule and (5) there is another process available (amendments initiated by governing bodies or citizens) for carrying out needed changes to the Metropolitan Area General Plan. Reviewing the Metropolitan Area General Plan midway between five- year updates leaves only a two --year period between major updates and review. With this level of periodic scrutiny, the Plan can remain current and consistent with the changing character and needs of the community, Iv -1 1 910/ to B . Plan Amendment: Pl an amendments may be generated by any of three governing b Citizens may i n i t i a t e amendments by proposing changes to the appropriate implementing jurisdiction subject to the approval of that jurisdiction. Such amendments may be determined appropriate because of changing circumstances and the needs of the community since the adoption of the Plan. Recognizing that amend- ments to the Metropolitan Area General Plan may occur, the three governing bodies have developed and adopted a uniform procedure far considering such changes . There are two types of plan modifications: 1. Amendment of the Plan text and its diagram; and 2. Amendments to the General Plan through refinement plans or subarea plans with boundaries which interface with the General Plan. A clear understanding of the amendment procedure is important to avoid confusion by the public" -at -large as well as- elected and appointed off i c i al s . This procedure includes a method for amendment of the Plan Boundary between Eugene, Springfield, and Lane County and incorporates a process by which full participation by the three planning commis- sions and their governmental bodies occurs, The major elements of this procedure are: 1 . Each local governing body may i n i t i a t e an amendment to the General Plan. 2. The . amendment is referred to the other two governing bodies and affected local agencies for review and commend -, and the initiating jurisdiction conducts public hearings. The other two jurisdictions h ave' the option to conduct hearings on the amendment. If consensus on the amendment is reached, the L -COG Board ratifies the change. 3. If consensus is not reached, there is an agreed upon pro cedure for conflict resolution which is included in this Nan as Appendix A. In addition to established time frames and procedure for reviewing and amending the Metropolitan Area General Plan, i t is also neces- sary to provide for refinements to the Plan Refinements are neces- sary in certain geographical portions-of the community where there is a great deal of development pressure (e.g., the River Road�Santa Clara area) or they are necessary for certain special 'purpose or functional elements where more specificity i s .needed (e.g. Energy Management P] an) . Refinement studies must be consistent with the Metropo l - i t an area General Plan or they may identify the . need for amendments to the Plan . IV -2 q 686 C . Plan Refinement: The Metropolitan Area General Plan is a long- range public pa l i cy document which establishes the broad framework within which Eugene, Springfield and Lane County base coordinated land use decisions. While the General Plan is the basic guiding land use policy document, it is not the only such document; it can be augmented by more detailed refinement plans, programs and policies. The relationship between the Metropolitan Area General Plan and refinement plans such as neighborhood or community plans and policies is explained more fully in Chapter 1. All refinement plans and policies must be consistent with the General Plan and should inconsistencies occur, the General Plan is the prevailing policy document. Refinement plans establish more detailed public policy direction and are subject to established public review and adoption processes . "Refinement Plan" and "refinement planning process" are also defined in the Glossary, Chapter V. D. Jurisdictional Responsibility There is an established jurisdictional boundary defined as follows: A site-specific line delineated on the diagram and Auxiliary Map No. 3 that defines the area of the Metropolitan Area General Plan where all three jurisdictions have equal and cooperative authority over long -range .planning decisions. That area is subject to the Plan review, amendment and refinement processes described i n t h i s Chapter. When implement - ing. this -Plan within the jurisdictional boundary: 1. Lane County has responsibility for all areas beyond the two cities, and 2. The Cities of Eugene and Springfield have responsibility for all areas within their city limits. Findings l . If the Metropolitan Area General Plan is to maintain its effec- tiveness, as . a policy guide, it must be adaptable to the changing needs and circumstances of the community, 2. In between major five -year updates, changes to the Plan may occur through periodic review and - amendment or amendments initiated by the governing bodies. IV -3 /869(0 3. Certain geographical and special purpose or functional refinements to the Plan are necessary. Goal Ensure that the Metropolitan Area General Plan is responsive to the changing conditions, needs and attitudes of the community, and is fully integrated with surrounding subarea plans. 1. Maintain a schedule for monitoring, reviewing and amending the Metropolitan Area General Plan so it will remain current and ' val id . 24 Maintain a current land use and parcel information base for mon-- i for i ng, and updating the Metropolitan Area General Plan. 3. Prepare refinement and functional plans that supplement the-Metro- politan Area General' Plan. 1, Major plan updates shall be initiated every five years with par - tic i pation by the metropo.l itan area planning advisory committee, the planning commissions of the metropolitan area, and the gov- ern i ng bodies . of Springfield, Eugene and Lane County. Upd ate should include at. least the following .a. Development of new basic information and statistical data, b. Review and test validity of existing f i nd i s and basic re- search information and statistical data. c. Testing of projections and assumptions and establishing new projections and assumptions, d, Reevaluation and possible changes or modifications of basic concepts, goals and recommendations e. Evaluating the means of implementation and their effectiveness and proposing changes or the establishing of new implemen- tation techniques. f. Public hearing(s) by the planning commissions and governing bodies on all recommended additions and amendments or alter- ations to the Plan. Iv -4 2 . The Metropolitan Area General Plan should be reviewed midway be- tween major five -year updates, and this review should be conducted by-the metropolitan area planning advisory committee, planning commissions and governing bodies. The review should include at least the following: a. Eval uat ion ' of progress in the-implementation of the Plan with special emphasis on the extent to which the community is moving towards the attainment of goals and objectives, and the extent to wh - ich the policies are being followed or developed. b. General review of the findings as they may relate to any new data. c . Studies and plans that may be appropriate in light of i d e n - t i f i e d changes. 3. In addition to the review and five -year update of the Metropolitan Area General Plan, refinement studies should be undertaken for individual geographical areas and special purpose or functional elements as determined appropriate by each govern ng body. 4. The geographic information data base shall be maintained on a regular basis. 5. Land use and density allocations in neighborhood or community plans shall be consistent with the Metropolitan Area General . Plan . Approval of a difference that might have an effect on a metro- politan scale shall be contingent on an amendment to the General Plan . 6. The process identified i n ,Appendix A of this Plan shall govern con- flict resolution among the three jurisdictions. 7. Any plan developed by one of the three governing bodies to refine the General Plan shall be referred to the other two-bodies, determination as to its definition 'as: l) A refinement plan which does not conflict with the General Nan even though it may affect more than one unit of gov- ernment.., or 2} An amendment to the General Plan which requires change to the General Plan in -which case amendment procedures shall be followed. 3 } If any one of the three governing bodies determines a refine- ment plan to be an amendment, such plan shall be to the General Plan amendment procedures in Appendix A. IV -5 � ■ � � CHAPTER V Al M_SAPY The purpose of the Glossary is to define commonly used terms as used in the Metropolitan Area General Plan, 1. Assumption A position, projection or conclusion considered to be reasonable. Assumptions differ from findings in that they are not a known fact. 2. Density, gross The number of dwelling units and area in auxiliary uses, such as dedicated road -s, parks and public facilities, per acre of 1-and. 30 Density, net. The number of dwellings units per acre of land in _ 3Et u I r.esi ential use; in other words, excluding dedicated roads, parks and public facilities. 4, Duplex Dwelling, Unit A duplex dwelling unit is a two -unit structure hav a common wall l between the dwell units. 5. F i nd i n,;. Factual st atement resul ting from i nvest i g at i on s', an al ys is or observation. 6. Goal . Broad statement of philosophy that describes the hopes of the people of the community for the future of the . commun ity. A goal may never be compl etely attai.nabl e- but i s us - e.d as ' a po int - to strive for. ' 7. Jurisdictional boundary. A site-specifi line delineated on Aux i l l ary M ap No. 3 that d e l nes the area of,-the Metropolitan Plan where all three jurisdictions have equal and cooperative authority over long- range planning decisions and are subject to the Plan. review, amendment and refinement process described in Chapter IV, 8. Key' urban f ao i l i t i es and services. Those p u b l i c facilities and service important o urban eve opment . They are pr imar i l y planned for by 1 government and- provided within the current urban service area and as listed in the recommended policies in Chapter II pertaining to Growth Management and the Urban Service Area. 90 Mobile home A dwelling unit design - ed to be commercially trans portable on- the public highways, that has sleeping, cooking and plumbing f a c i l i t i e s , and is - intended for permanent human occupancy. This does not include campi or vacation trailers or recreational vehicles. .10. Mode. The transportation system used to make a trip such a auto- - mobile, transit, pedestrian, bicycle or paratransit, V -1 18686 11. Multiple - Family Dwel l in.g Unit, A multiple - fami dwelling unit is a dwelling unit in a structure having three or more units. It can be a condominium, townhouse, row-house, triplex, or apartment. use of the term multiple - fami does not necessary connote rental. 12. Objective An attainable target that the community attempts to reach in striving to meet a goal . An objective may also be con- sidered as an intermediate point that will help fulfill the overall goal . 13, Paratransit. The various types of ride sharing programs such as - carpoo ing, vanpool ing, taxi service, and subscription bus service, 14. Plan d i agram, A graphic depiction of (1) the broad allocation of prod ecte and use needs in the metropolitan area, and (2) the goals, objectives and recommendations embodied in the text and elements of the Plan. Some of the information shown on the diagram includes land use categories, the urban growth boundary, major transportation corridors and Willamette- River Greenway boundaries. Statement adopted as art of the Plan to 5 , Po l � cy . p p provide a s p e c i f i c course of action moving the community towards atta inment of its goals. Due to budget constraints and other activities, all policies cannot be implemented at 'the same time, Gener l y, those with metropolitan-wide impl ications should receive priority consideration, 16, Redevel opabl e land. Complete tax lots or portions of tax lots - which due to their characteristics, - have high potential for redevelopment at a more i use. These char acter i st i c s might have one or more of the fo l l owing : a. Low improved v - al ue to land valu ratio b. Poor physical condition of the improvement c. Low improved value d, Large size e. Higher zoning potential (indicator of adjacent uses) , 17. Refinement P an . Refinement plans are .a detailed examination of the service needs and land use problems peculiar to particular area. Refinements - to the General plan can include spec if tc neighborhood or community plans, or special purpose or functional plans ( as water, sewer, or transportation plans), In addition, refinement plans can be in the form- of major pl anned unit developments, annexation and zoning applications, or other special area studies. 18, Refinement P l ann i n Process , Refinement plans-are developed through a - process wh i'ch includes 1 udes at - 1 east the following l l owing elements : A predeter- mined ned ci ti zen involvement process, pre- establ i shed . policy direction in l ocally adopted plann documents and planning commission and elected off is i.al process. In some cases, these processes would have to be ex panded _0 1 nc l ud a review and ' i nvo l vement = by c i t i z e n s , appointed and el ected officials . V-2 ldb8L 19. _ Rural lands. Rural lands are those which are outs i.de -.the projected urban service area and are: (a) non - -urban agricultural, forest or open space lands, or (b) other lands suitable for sparse settl e- ment, such as small farms or acreage homes i tes with no or hardly any pub lic services, and which are not suitable, necessary or intended for urban use (refer to Graphic on page 4). See also Chapter II, Section C for a further description of timber lands and agricultural areas as separately depicted on the Plan diagram. 20. Simile - Family ,0wel l ing Unit A single -- family dwelling unit is a single-famTly detached structure on 'an individual parcel 21, Underdeveloped land. The vacant or agricultural portion of land on tax lots having more than one land use. 22, Underutilized human resources. Persons who are (1) unemployed or ( 2) employed part -time but want to work full time or (3) in posi- tions that do not fully utilize their skills. 23, Undeveloped land Complete tax lots which are vacant or used for agricultural purposes. , 24. Urban 2rowth boundary. A site - specific line, delineated on a map or by wr i description, that separates the projected urban service area from rural land (refer to graphic on� page 4) . 26. Urban lands. Urban lands -are .those places or areas which include an incorporated city. They may also include areas adjacent to and outside an incorporated city that (a) have supporting public facil- ities and services and/or (b) have .concentrations of people who general reside and work in the area. Such- concentrations include (1) an average of one or more dwelling units per gross acre or (2) subdivided and/or partitioned parcels averaging not over 'one- -third acre (refer to graphic on page 4) , 26. Urban service area, current,. The actual geograph i portion of the metropolitan area designated as urban land - and in which the minimum level of key urban facilities and services a_ re available or im- minent (refer to graphic on page 4)-,- 27. Urban service area, projected The estimated geographic urban- - izab l e area within which a full range of urban services wi 11 need to be extended or provided to accommodate urban development needs by a designated future point in time. It is primarily determined by population, land use and economic projections. Periodic adjust- ments to these projections are necessary to reflect changing con- ditions and more recent data (refer to graphic on page 4) , V-3 18686 28. Urbanizable land Urbanizable lands are those lands or areas within the urban growth boundary which (a) are determined to b suitable for future. urban uses, (b) will be served by urban ser- vices and facilities when converted to urban, and (c) will be needed to accommodate future development, within the planning period, i.e., a metropolitan population of 293,700 (refer to graphic on page 4) . RURAL LANDS JURISDICTIONAL BOUNDARY � Urban Growth - Boundary urowtn Boundary Urban Lands Inside the Current Urban Ser{vi.ce Area Urban Lands Outside the Current Urban Service Area lir Jurisdictional Boundary . NOTE: This graphic is meant to be illustrative only of the. various boundaries used in the Plan. All terms are defined in the Glossary. V-4 M 10 V 010 APPENDIX A PROCEDURE FOR AMENDMENT OF THE GENERAL PLAN 1. Initiation of Amendment. Each local Jurisdiction ( Lane County, Springfield) may i n i t i a t e an amendment to the 1990 General Plan. A proposed amendment shall be referred to the other two juris- dictions by the initiating jurisdiction. The initiating jurisdiction shall conduct public hearings on the pro-posed amendment at both planning commission and governing body level. Local jurisdictions shall have the option of establishing procedures for citizen partici- pation (e.g., referral to neighborhood groups as required by local policy, etc.) 2. Consensus Amendment All three jurisdictions may, but shall not be required to conduct joint or simultaneous hearings. In the event all three planning commissions and all three governing bodies adopt an identical amendment, the Lane Council of Government (hereafter L --COG) Board shall be required to ratify the amendment without further action by any of the jurisdictions. 3. Amendment by Initiatin Jurisdiction. If consensus to amend the Plan in identical as ion is not reached (Step 2) by all three jurisdictions, the governing body of the initiating jurisdiction shl l have the authority to adopt the amendment on behalf of that jurisdiction. Adoption of the amendment would not become final until 30 days after action is taken. 4. Referral of Amendment . Upon action by a local jurisdiction on a proposed amendment, copies thereof shall be forwarded to the other jurisdictions and to the Metropolitan Area Planning Advisory Committee (hereafter MAPAC) , which bodies would have 30 days thereafter to respond to the amendment. Response may be a form of overt concurrence, silences, or dissent. In the event none of the reviewing bodies dissent, the amendment shall immediately be forwarded to the L -COG Board for ratification and inclusion in the metropolitan plan at the expiration of the 30 -day period. In the event of dissent by any of the reviewing bodies, procedures there- after shall be in accordance with paragraphs 5, 6, and 7 hereafter set forth. 5. Action_ on Dissent (First Stage} . . If a local body or MAPAC objects to an amendment adopted by one of the local jurisdictions, it shall so notify the local jurisdiction sponsoring the amendment within the 30-day period. Thereafter the objecting body and the sponsoring local 'Jurisdiction shall schedule a joint meeting for the purpose of discussion of the amendment. such joint meetings shall occur at the planning commission level, the governing body level, or both, A -1 depending upon the circumstances in each specific case. If resolu- tion of the objection(s) i -s reached, the amendment shall be forwarded to the L -COG Board-for ratification and incorporation into the metropolitan area pl an. If the joint meeting - process results in substantial modifications to the amendment, as adopted by the local jurisdiction, such body shall conduct new hearings on - the amendment as modified and if approved, forward the modified amendment to the other local jurisdictions and MAPAC for their consideration, If the objection(s) cannot be resolved through the joint meeting process, resolution thereof shall move to the second stage. 6. Action on Di cspnt (Spr:nnd Staap) . If the individual .iuri sd ictinnS involved in an amendment to the metropolitan plan are unable to resolve 'the objection(s) concerning an amendment through joint meetings, the matter shall be referred to a tr i - agency appeals board (hereinafter referred to as Appeals Board) to be established by a joint resolution of Lane County, the City of Eugene, and the City of Springfield. The Appeals Board shall consist of the following members: (a) The Mayor of the City of Eugene. (b) The Mayor of the City of Springfield. (c) A representative of the Board of Lane County Commissioners. If the Appeals Board approves an amendment to the metropolitan plan, the amendment shall be forwarded to the L -COG Board for ratification and- incorporation into the metropolitan plan. 7. Appeal from L--COG Board Decision (Third Stage). In the event any local jurisdiction does not agree with the decision rendered by the Appeals Board the l oc.al jurisdiction may appeal from the dec i s ion to the Land. Conservation and Development Commission . At thi s stage, the appellant must demonstrate that the decd sion of the Appeals Board. violates the state goals and guidelines. Appeal s to the State Land Use Board of Appeals must be submitted within thirty (30) days from the date the decision of the Appeals Board is ren- dered. 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