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Eugene-Springfield Metropolitan Area
Public Facilities and Services Plan
A Refinement Plan of the
Eugene-Springfield Metropolitan Area General Plan
,;
December 2001
Date Received
MAY 06 2008
Planner: BJ 1
For more information about this plan, contact:
City of Springfield
Mark Metzger, Senior Planner
City of Springfield
Development Services Department
225 5th Street
Springfield, OR 97477
(541) 726-3775
Lane County
Celia Barry, Associate Planner
Lane County Land Management Division
3040 North Delta Highway
Eugene, OR 97408
(541) 682-3576
. City of Eugene
Jim Croteau, Principal Planner
City of Eugene Planning Division
99 West 10th Avenue, Suite 240
Eugene, OR 97401
(541) 682-545]
Lane Council of Governments
Carol Heinkel, Principal Planner, Project
Coordinator
Lane Council ofGovemments
99 East Broadway, Suite 400 .
Eugene, OR 97401-3] 11
(54]) 682-4107
Date Received
MAY 06 2008
Planner: BJ
Eugene-Springfield Metropolitan Area
Public Facilities and Services Plan
Prepared by
Lane Council of Governments
99 East Broadway
Suite 400
Eugene, Oregon 97401-3]] 1
(54]) 682-4283
December 200]
Date Rer:'8!Ved .
MAY 0 6 2008
Planner: BJ
~
Date Received
MAY 06 2008
Planner: BJ
Table of Contents
Preface
v
Acknowledgements
vii
I. Introduction ]
Study Background and Process ]
Refinement Plan Purpose and Objectives 2
Policy Analysis Considerations 2
Statewide Planning Public Facility Plan Requirements 3
Public Involvement Opportunities 5
. n. Metro Plan Amendment Recommendations 7
Introduction 7
Text Amendments 7
Chapter Ill-G. Public Facilities and Services Element 7
Other Metro Plan Text Amendments 22
Project Lists and Planned Facilities Maps 26
Planned Water System Improvements 26
Planned Wastewater System Improvements 28
Planned Storm water System Improvements 29
. Planned Electrical System Improvements 32
Solid Waste 32
DI. Policy Analysis 4]
Introduction 4]
Chapter III-G. Public Utilities, Services, and Facilities Element 41
Other Metro Plan Text Amendments 65
Chapter I. Introduction 65
Chapter 11-8. .Growth Management and the Urban Service Area 66
Chapter III-E. Environmental Design Element 67
Chapter V. Glossary 68
IV. Public Facilities Needs Analysis 7]
Existing Service Areas 7]
Public Facility Systems Condition Assessment 72
Water System Condition Assessment 72
Wastewater System Condition Assessment 82
Storm water System Condition Assessment 84
Eugene-Springfield Metropolitan Area Public Facilities and Services PlaCate Recq,ived
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"Planner: BJ
IV.
V.
Table I
Table 2
Table 3
Table 4
. Table 5
Table 6
Table 7
Table 8
Table 9
Table 10
Table I]
Table 12
Table ]3
Table ]4
ii
Table of Contents (continued)
Public Facilities Needs Analysis (continued)
Public Service Availability
Methodology
Short-Term Service A vailability
Long-Term Service Availability
Estimated Project Costs and Timing
Planned Water System Improvements
Planned Wastewater System Improvements
Planned Stormwater System Improvements
Financing Methods and Alternatives
Financing Methods
Existing Financing Strategies
. Financing Issues and Challenges
Alternative Financing Strategies
Appendices
Appendix A:
] 987 Metro Plan Chapter Ill-G. Public Utilities,
Services, and Facilities Element
Existing Federal, State, and Local Policy Framework
Statewide Planning Goal] ] and OAR 660 Division I]
Appendix B:
Appendix C:
Index to Tables
EWEB Water System Improvement Projects
SUB Water System Improvement Projects
City of Eugene Wastewater System Improvement Projects
. City of Springfield Wastewater System Improvement Projects
City of Eugene Stormwater System Improvement Projects
City of Springfield Stormwater System Improvement Projects
EWEB Planned Electrical Facilities
SUB Planned Electrical Facilities
Eugene Wastewater Collection System General Condition Assessment
Springfield Wastewater Collection System General Condition Assessment
Eugene Stormwater System General Condition Assessment
Springfield Stormwater System General Condition Assessment
EWEB Water System Improvements, Estimated Costs, and Timing
SUB Water System Improvements, Estimated Costs, and Timing
.Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
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102
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]07
107
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Date Received
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Table of Contents (continued)
Index to Tables
Table 15 City of Eugene Wastewater, System Improvements, Estimated Costs,
and Timing 10]
Table]6 City of Springfield Wastewater System Improvements, Estimated Costs,
and Timing 101
Table]7 City of Eugene Stormwater System Improvements, Estimated Costs,
and Timing 102
Table] 8 City of Springfield Stormwater System Improvements, Estimated Costs,
and Timing 104
Table] 9 Existing Financing Sources ] 09
Index to Maps
Map 1: Planned Water Facilities 33
Map 2: Planned Wastewater Facilities 35
Map 3: Planned Stormwater Facilities 37
Map 4: Planned Electrical Facilities 39
Map 5: Existing Water Service Areas 75
Map 6: Existing Wastewater Service Areas 77
Map 7: Existing Stormwater Service Areas 79
Map 8: Public Service Availability in the Eugene-Springfield Metropolitan Area 91
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
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iv Eugene-Springfield Metropolitan Area Public Facilities and Services Plan Date Received
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Planner: BJ
Preface
In 1987, Eugene, Springfield, and Lane County adopted an updated version of the Eugene-
Springfield Metropolitan Area General Plan (Metropolitan Plan or Metro Plan). The ] 987
update of the Metro Plan incorporated amendments processed through a locally driven mid-
period review conducted in accordance with the Oregon Land Conservation and Development
Commission's (LCDC) Post Acknowledgment review process as well as amendments processed
as part of the state-mandated 1985 Metro Plan periodic review process.
The] 987 update of the Metro Plan included Metro Plan text amendments recommended through
the development and adoption of the ] 987 Eugene-Springfield Metropolitan Area Public
Facilities Plan Technical Report (1987 Public Facilities Plan). The 1987 Public Facilities Plan
and associated Metro Plan amendments were adopted in order to meet Statewide Planning Goal
] ] and Goal]] administrative rule requirements for public facilities plans. The ordinances
adopting the 1987 Public Facilities Plan are repealed concurrently with the adoption of this
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan (Public Facilities and
Services Plan).
On May 25, 1995, the Oregon Department of Land Conservation and Development (DLCD)
approved the Eugene-Springfield Metropolitan Area General Plan Periodic Review Work
Program, which had been approved and forwarded to DLCD by the Eugene and Springfield City
Councils and the Lane County Board of Commissioners. This Public Facilities and Services
Plan was prepared to comply with the] 995 periodic review work task, "Review and revise the
1987 Public Facilities Plan and update Metro Plan Chapter III-G. Public Utilities, Services, and
Facilities Element."
A joint public hearing by the Eugene, Springfield" and Lane County Planning Commissions was
held on October 24, 2000, and a joint public hearing by the Eugene City Council, Springfield
City Council, and Lane County Board of Commissioners was held on April 4, 200 I.
Each governing body subsequently adopted this refinement plan to the Metro Plan and the
agreed upon Metro Plan amendments:
Lane County, Ordinance No. PA ] ]60, adopted October 26, 200]
City of Eugene, Ordinance No. 20240, adopted December 10,200]
City of Springfield, Ordinance No. 5992, adopted November 5, 200]
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY 0'6 2008
Planner: BJ
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Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
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MAY 06 2008
Planner: BJ.
Acknowledgements
This draft Eugene-Springfield Metropolitan Area Public Facilities and Services Plan and
recommended amendments to the Eugene-Springfield Metropolitan Area General Plan (Metro
Plan) were prepared through the combined efforts of staff from local and state agencies. The
plan was funded by the Department of Land Conservation and Development (DLCD), Eugene
Water & Electric Board, Springfield Utility Board, Rainbow Water District, and the Eugene and
Springfield Public Works Departments. Technical guidance and information for the,plan were
provided by a Technical Advisory Committee (T AC), the metropolitan planning directors, and,
for school-related findings and policies, local and state school administrators.
The following individuals are recognized for their contributions to this plan.
Technical Advisory Committee
City of Springfield
Troy McAllister, Senior Civil Engineer
Mark Metzger, Senior Planner
Susan Smith, Environmental Services Manager
George Walker, Engineering Technician
Springfield Utility Board
Ken Cerotsky, Water Department Manager
Raymond Meduna, Electrical Planning
Technician '
Lane County
Celia Barry, Associate Planner
Michael Copely, Associate Planner
Harvey Hoglund, Associate Planner
Lane Council of Governments
Geoff Crook, Assistant Planner
Peter Eberhardt, GIS Associate
Carol Heinkel, Project Coordinator
Paula Taylor, Senior Planner
Cynthia van Zelm, Associate Planner
Production Team
City of Eugene
Jim Croteau, Principal Planner
Joe Ferguson, City Surveyor
Les Lyle, City Engineer
Glen Svendsen, Financial Analyst
Therese Walch, Water Resources Team Manager
Kurt Yeiter, Senior Planner
Eugene Water & Electric Board
Deborah Brewer, Intergovernmental Coordinator
Mel Damewood, Water Engineering Manager
Marty Douglass, Public Affairs Manager
Mel Taylor, Electric Distribution Planner
Rainbow Water District
Tim Hanley, Superintendent
Oregon Department of Land Conservation
and Development
Mark Radabaugh, Urban Field Representative
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY '(1'6 2008
Planner: BJ
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Metropolitan Planning Directors
Jan Childs, Eugene Planning Director
Kent Howe, Lane County Planning Director
Greg Mott, Springfield Planning Manager
School Administrators
Steve Barrett, Assistant Superintendent - Operations, Springfield School District
Jerry Fritts, Superintendent, Pleasant Hill School District
Kent Hunsaker, Superintendent, Bethel School District
Chris Ramey, Director and Architect - University Planning, University of Oregon
Mike Ruiz, Superintendent - Facilities Management and Planning, Lane Community College
Ron Sanetel, District Architect, Eugene School District 4J
Date Received
Vlll
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
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Planner: BJ
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I. Introduction
, This Eugene-Springfield Metropolitan Area Public Facilities and Services Plan (Public
Facilities and Services Plan) is a refinement plan ofth"e Eugene-Springfield Metropolitan Area
General Plan (Metro Plan). Chapter II of this plan recommends text amendments to the Metro
Plan which are adopted as part of, and are incorporated into, the Metro Plan. The project lists
and maps in Chapter II are also adopted as part of the Metro Plan but are physically located in
this refinement plan. If there are any inconsistencies between this plan and the Metro Plan, the
Metro Plan prevails.
In addition to recommending amendments to the Metro Plan in Chapter II, this plan discusses
how and why policies are recommended to change (Chapter III), evaluates public facility needs
in the Eugene-Springfield metropolitan area, including estimated costs and timing of planned
projects (Chapter IV), and describes existing and alternative methods of financing public
facilities and services (Chapter V).
A companion document, the Eugene-Springfield Metropolitan Area Public Facilities and
Services Plan, Existing Conditions and Alternatives report (April 1999) serves as a technical
background document to this Public Facilities and Services Plan and may be referenced for
more detailed information on existing water, wastewater, storrriwater, and electrical facilities,
including alternative financing and service delivery options.
This chapter provides the study background and process, states the purpose and objectives of this
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan (Public Facilities and
Services Plan), describes policies and conditions considered in the policy analysis, provides
highlights of state public facilities planning requirements, and describes past and future
opportunities for public involvement.
Study Background and Process
This plan is a product of the Public Facilities Plan and Metro Plan Update Study. This study is
,one of the work tasks in the Eugene-Springfield Metro Plan Periodic Review Work Program,
adopted locally and approved by the Land Conservation and Development Commission (LCDC)
on May 25,1995. The study was coordinated by Lane Council of Governments (LCOG) and
funded by DLCD and the local utilities and public works departments.
In July 1998, the Public Facilities and Services Plan Technical Advisory Committee (T AC) was
formed to guide the project. The T AC was comprised of planning and public works staff from
13 departments and agencies, including water and electric department staff from the two
municipal utilities; staff from the one water district that delivers services in the metropolitan
urban growth boundary; planning and public works staff from Eugene, Springfield, and Lane
County; and the local field representative from the Department of Land Conservation and
Development (DLCD) (see Acknowledgments). Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
Planner: BJ
The TAC met monthly from July 1998 through October 1999. Over this 16-month period, the
TAC worked with the LCOG staff team to collect data, identifY public facilities and services
needs, brainstorm and discuss issues, prepare an analysis of the existing policy framework,
identify public facility improvements and their general location, and reach consensus on a set of
Metro Plan findings and policies. During this time, a sub-group of the TAC met with
administrators from the local school districts, the University of Oregon, and Lane Community
College to discuss issues and draft Metro Plan policies related to schools.
In November 1999, the T AC passed on a preliminary set of policy recommendations for review
by the 19 departments, agencies, and education districts and institutions described above as well
as by the planning directors and legal counsel of Eugene, Springfield, and Lane County. The
input from these sources was incorporated into a draft plan, which the T AC revie~ed, revised,
and released for public review in August 2000.
Refinement Plan Purpose and Objectives
The purpose of this refinement plan is to ensure that key urban facilities and services are
provided in a timely, orderly, and efficient manner to existing and new population and land uses
wi~hin the metropolitan urban growth boundary. In accordance with existing Metro Plan policy,
urban facilities and services are also planned for areas designated Urban Reserve in the Metro
Plan diagram. I
This refinement plan has two objectives:
I. Update Metro Plan policies, specifically, Metro Plan Chapter III-G. Public Utilities,
Services, and Facilities Element and, in order to make the Metro Plan internally
consistent, other Metro Plan policies affecting public facilities and services.
2. ,Comply with the requirements of Statewide Planning Goal] 1 and Goal] ] administrative
rules to adopt a public facilities plan for water, wastewater, stormwater, and
transportation facilities. This plan also includes information about and maps for
, electrical facilities although not required by law. Transportation system requirements are
met through TransPlan, incorporated into this refinement plan by reference.
Policy Analysis Considerations
The Metro Plan is the guiding policy document for comprehensive land use and public facilities
and services planning in the metropolitan area. The Metro Plan Public Utilities, Services, and
Facilities Element (Chapter III-G) provides policy direction for all key urban facilities and
services. The existing] 987 element is contained in Appendix A. Recommended amendments to
this element are presented in Chapter II of this plan.
I See Existing Service Areas in Chapter IV of this plan.
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The' Public Utilities, Services, and Facilities Element is closely. associated with policies in other
chapters of the Metro Plan, in particular Chapter 11-8. Growth Management and the Urban
Service Area. A thorough review of all Metro Plan policies was conducted and policy
amendments were recommended that are necessary to make the Metro Plan internally consistent.
In developing the recommended findings and policies in Chapter II, the TAC strove to achieve
consistency with the following considerations:
. Existing federal, state, and local policy framework, including relevant changes to state
law. Appendix B contains a summary of this framework.
. Recent policy development at the local level, for example, the updated Metro Plan
Chapter III-A. Residential Land Use and Housing Element; Eugene Growth
Management Policies; Eugene stormwater basin planning; and the nodal development
policies in TransPlan. See Appendix B for a complete analysis of local policy
considered.
. Responsiveness to changes in local conditions, including changes in the way facilities
and services are delivered, and the issues these present.
. The requirements of Statewide Planning Goal II alld Goal II administrative rules.
Highlights of these requirements are provided in the next section of this chapter, The full
text is contained in Appendix C:
Statewide Planning Public Facilities Plan Requirements,
Statewide Planning Goal I] (Goal II) requires cities and counties, "to plan and develop a timely,
orderly and efficient arrangement of public facilities and services to serve as a framework for
urban and rural development." OAR Chapter 660, Divisionl] requires cities with a population
over 2,500 to adopt a "public facilities plan" for areas within an urban growth boundary.
State Jaw requires that public facilities plans describe the water, wastewater, and stormwater
facilities necessary to support the land uses designated in the comprehensive plan within the
urban growth boundary. The public facility systems are:
Water:
Water sources and the treatment, storage, pumping, and primary
distribution systems; , '
Treatment facilities'and primary collection systems;
Major drainageways (major trunk lines, streams, ditches, pump stations,
and retention basins) and outfall locations; and,
-Transportation system plans adopted pursuant to Goal 12 requirements
fulfill the requirements for public facilities planning under Goal 11
(OAR 66-12-000).
Wastewater:
Stormwater:
Transportation:
In addition, this Public Facilities and Services Plan contains information about and maps for
major electrical transmission lines and facilities in order to better coordinate the location of these
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date @eceived
MAY 06 2008
Planner: BJ
facilities with planning for land uses and other public facilities and services. This plan also
provides for solid waste disposal sites, including sites for inert waste, as required by Goal I 1.2
OAR 660-011-0010 directs that public facilities plans contain inventories, projects, and policies,
as described below.
I. lnventorv
An inventory and general assessment of the condition of all the public facility systems
serving land in the urban growth boundary, including: the mapped location of the facility
or service area; facility capacity or size; and general assessment of condition of the
facility. '
2. Proiects
List of significant projects needed to serve land in the urban growth boundary, including:
project specifications as necessary; a description of each project in terms of the type of
facility, service area, and facility capacity; rough cost estimates o'f each project; a map or
written description of each project's location or service area; an estimate of when each
project will be needed; and a discussion of the provider's existing funding mechanisms.
Projects that will serve future development in the urban growth boundary should be
identified as occurring in either the short term (five years or less) or long term (six years
or more). Short-term projects must identifY an approximate year for development.
3. Policies
Policies or an urban growth management agreement designating the provider of each
public facility system, or, if more than one provider, the providers of each project.
Public facilities plans must be adopted locally as a support document to the comprehensive plan.
The following components of the public facilities plan must be adopted as part of the
comprehensive plan:
1. Project titles, which may exclude descriptions and specifications;
2. Map or written description of the projects' locations or service areas; and
3. Comprehensive plan policies or agreement.
Project timing and financing provisions of public facility plans are not considered land use
decisions as specified under ORS 197.0]5(10). Project timing and financing provisions in the
public facilities plan are not adopted as part of comprehensive plans"
The rules anticipate that circumstances may change over time that may alter the project
descriptions or location and, therefore, the law does not prohibit projects for which unanticipated
4,
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY 06 2008
2 See recommended Metro Plan Policy G.24 in Chapter II.
Planner: BJ.
funding has been obtained; preclude project specification and location decisions made according
to National Environmental Policy Act (NEP A); or require formal adoption processes for
administrative or technical changes to the public facilities plan.
Goal II and administrative rules were amended in 1998, in part to determine under what,
circumstances wastewater collection systems can locate or be extended outside urban growth
boundaries. The Goal and rules now allow components of a wastewater system that exclusively
serve lands inside an urban growth boundary to be placed on lands outside the urban growth
boundary. The revised administrative rules also allow, but do not require, a new wastewater
collection system or extension of a system to serve land outside the urban growth boundary only
to mitigate a public health hazard that is caused by pre-existing development where there is no
practical alternative to a wastewater system to abate the health hazard.
The 1998 Goal II rule changes also prohibit local land use regulations applicable to lands
outside urban growth boundaries to allow an increase in either the allowable density or in a
higher density of residential development due to the presence, establishment, or extension of a
water system.
For more details on these legal requirements, Appendix B contains an analysis of federal, state,
,and local policies, including a detailed analysis of Goal II and administrative rules. Appendix C
contain's the actual text of Goal II and OAR Chapter 660, Division 11.
Public Involvement Opportunities
The Eugene-Springfield Joint Planning Commissions Committee (JPCC) is the official citizen
involvement body for the Metro Plan. . The JPCC approved the Public Involvement Plan for this
planning project in March 1999. In accordance with the Public Involvement Plan, public
involvement for this project used the following tools and processes:
. An Interested Parties Mailing List was maintained to provide notice of significant
events such as workshops, forums, and public meetings and hearings. The Interested
Parties List for Periodic Review was sent the Periodic Review Newsletter, which
contained status reports on the Public Facilities and Services Plan. This list contains
over 800 names. Additional names were added to the list through individual requests.
The mailing list was notified of opportunities to review and comment and submit
testimony on the draft plan and recommended Metro Plan amendments.
. Workshops were conducted to keep the public informed about the status of the study
and to obtain public input. A workshop on existing conditions was held in April
] 999, A workshop on the draft plan was held in October 2000.
. , Newspaper Ads and News Releases were prepared and released to the local media
prior to events.
. WEB Site: This plan is available for review on the internet at LCOG.org\Metro
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 058 2008
Planner: BJ
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. Flyers, Fact Sheets, and Frequently AS ,cd Questions papers were prepared and
distributed, as needed.
. Presentations by project staff to local citizen and special interest groups were
, provided on request.
. Public Hearings on the draft refinement plan and recommended amendments to the
Metro Plan were be conducted during the' Public Facilities and Services Plan
adoption process, beginning in fall 2000.
6
Eugene-Springfield Metropolitan Area Public Fac!,ities' and Services Plan
Date Recpived
MAY 0 S 2008
,Planner: 81,j
II. Metro Plan Amendment Recommendations
This chapter presents recommendations for amending the Metro Plan. Three types of
amendments are proposed:
]. Text amendments,
2. Planned Water, Wastewater, Storm water, and Electrical Project Lists, and
3. Water, Wastewater, Stormwater, and Electrical Planned Facilities maps.
Introduction
The Metro Plan text amendments, the project lists, and the maps in this chapter are adopted as
part of the Metro Plan. The Metro Plan text is physically located in the Metro Plan. The project
lists and maps in this chapter are located in this refinement plan.' An amendment to the Metro
Plan text, the project lists, or the maps in this refinement plan 'require a Metro Plan amendment
as well as an amendment to this refinement plan.
Please refer to Chapter I for information on the adoption process, including opportunities to
comment on these recommendations, Chapter III for information about how and why the Metro
Plan text is proposed to change, and Chapter IV for information about the need for the projects
included in the recommended project lists.
Text Amendments
The following Metro Plan text amendments are recommended to replace existing 'Metro Plan
text. The amendments include a complete rewrite of Metro Plan Chapter III-G. Public Facilities
\ and Services Element, and selected text changes to Metro Plan Chapters I, H-B, III-E, and V.
Glossary, in order to make the Metro Plan internally consistent.
Chapter ill-G. Public Facilities and Services Element
G. Public Facilities and Services Element
This Public Facilities and Services Element provides direction for the future provision of
urban facilities and services to planned land uses within the Plan boundary.
The availability of public facilities and services is a key factor influencing the location
and density offuture development. The public's investment in, and scheduling of, public
facilities and services are a major means of implementing the Metro Plan. As the
'population of the Eugene-Springfield area increases and land development patterns
change over time, the demand for urban services also increases and changes. These
changes require that service providers, both public and private, plan for the provision of
services in a coordinated manner, using consistent assumptions and projections for
population and land use.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Data Received
MAY 0 6 2008
Planner: BJ
The policies in this element complement Metro Plan Chapter II-A: Fundamental
Principles and ChapterlI-B: Growth Management. Consistent with the principle of
compact urban growth prescribed in Chapter II, the policies in this element call for future
urban water and wastewater services to be provided exclusively within the urban growth '
boundary. This policy direction is consistent with Statewide Planning Goal I], "To plan
and develop a timely, orderly, and efficient arrangement of public facilities and services
to serve as a framework for urban and rural development." On urban lands, new
development must be served by at least the minimum level of key urban services at the
time development is completed and, ultimately, by a full range of key urban services. On
rural lands within the Plan boundary, development must be served by rural levels of
service. Users of facilities and services in rural areas are spread out geographically,
resulting in a higher per-user cost for some services and, often, in an inadequate revenue
base to support a higher level of service in the future. Some urban facilities may be
located or managed outside the urban growth boundary, as allowed by state law, but only
to serve development within the urban growth boundary.
Urban facilities and services within the urban growth boundary are provided by the City
of Eugene, the City of Springfield, Lane County, Eugene Water & Electric Board
(EWEB), the Springfield Utility Board (SUB), the Metropolitan Wastewater
Management Commission (MWMC), electric cooperatives, and special service districts.
Special service districts provide schools and bus service, and, in some areas outside the
cities, they provide water, electric, fire service, or parks and recreation service. This
element provides guidelines for special service districts in line with the compact urban
development fundamental principle of the Metro Plan.
This element incorporates the findings and policies in the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan (Public Facilities and Services
Plan), adopted as a refinement to the Metro Plan. The Public Facilities and Services
Plan provides guidance for public facilities and services, including planned water,
wastewater, stormwater, and electrical facilities. As required by Goal] 1, the Public
Facilities and Services Plan identifies and shows the generallocation3 of the water,
wastewater, and stormwater projects needed to serve land within the urban growth
boundary" The Public Facilities and Services Plan also contains this information for
electrical facilities, although not required to by law. The project lists and maps in the
Public Facilities and Services Plan are adopted as part of the Metro Plan. Information in
the Public Facilities and Services Plan on project phasing and costs, and decisions on
timing and financing of projects are not part of the Metro Plan and are controlled solely
by the capital improvement programming and budget processes of individual service
providers.
3. The exact location of the projects shown on the Public Facilities and Services Plan pl~ed facilities maps is
determined through local processes.
4 Goal II also requires transportation fucilities to be included in public facility plans. In this metropolitan area,
transportation fucilities are addressed in Metro Plan Chapter III-F and in the Eugene-Springfield Transportation
System Plan (TransPlan), Date R . d
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8 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
Planner: BJ
This element of the Metro Plan' is organized by the following topics related to the
provision of urban facilities and services. Policy direction for the full range of services,
including wastewater service, may be found under any of these topics, although the first
topic, Services to Development Within the Urban Growth Boundary, is further broken
down into sub-categories.
o Services to Development Within the Urban Growth Boundary
o Planning and Coordination
o Water
o Storrnvvater
o Electricity
o Schools
o Solid Waste
o Services to Areas Outside the Urban Growth Boundary
o Locating and Managing Public Facilities Outside the Urban Growth Boundary
. . Financing
The applicabie findings and poliCies:are contained under each of these topic headings
below.
The policies listed provide direction for public and private developmental and program
decision-making regarding urban facilities and services. Development should be
coordinated with the planning, financing, and construction of key urban facilities and
services to ensure the efficient use and expansion of these facilities. '
Goals
I. Provide and maintain public facilities and services in an efficient and
environmentally responsible manner.
2. Provide public facilities and services in a manner that encourages orderly and
sequential growth.
Findings and Policies
Services to Development Within the Urban Growth Boundary:
Planning and Coordination
Findin"~
I. Urban expansion within the urban growth boundary is accomplished through in-
fill, redevelopment, and annexation of territory that can be served with a
minimum level of key urban services. This permits new development to use
existing facilities and services, or those which can be easily extende~inimizing , '. d
the public cost of extending urban facilities. ' uate Receive
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan '
MAY 091 2008,
Planner: BJ
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2.
In accordance with Statewide Planning Goal 11 and Oregon Administrative Rules
in Chapter 660, the Eugene-Springfield Metropolitan Area Public Facilities and
Services Plan (Public Facilities and Services Plan) identifies jurisdictional
responsibility for the provision of water, wastewater, and stormwater; describes
respective service areas and existing and planned water, wastewater, and
stormwater facilities; and contains Planned Facilities Maps for these services.
Electric system information and improvements are included in the Public
Facilities and Services Plan, although not required by state law. Local facility
master plans and refinement plans provide more specific project information.
3.
Urban services within the metropolitan urban growth boundary are provided by
the City of Eugene, the City of Springfield, Lane County, Eugene Water &
Electric Board (EWEB), Springfield Utility Board (SUB), the Metropolitan
Wastewater Management Commission (MWMC), electric cooperatives, and
special service districts.
4.
The Public Facilities and Services Plan finds that almost all areas within the city
limits of Eugene and Springfield are served or can be served in the short-term (0-5
years) with water, wastewater, stormwater, and electric service. Exceptions to
this are stormwater service to portions of the Willow Creek area and southeast
Springfield, and full water service at some higher elevations in Eugene's south
hills. Service to these areas will be available in the long'term. Service to all areas
within city limits are either in a capital improvement plan or can be extended with
development.
5.
With the improvements specified in the Public Facilities and Services Plan
project lists, all urbanizable areas within the Eugene-Springfield urban growth
boundary can be served with water, wastewater, stormwater, and electric service
at the time those areas are developed. In general, areas outside city limits
serviceable in the long term are located near the urban growth boundary and in
urban reserves, primarily in River Road/Santa Clara, west Eugene's Willow Creek
area, south Springfield, and the Thurston and Jasper-Natron areas in east
Springfield.
6.
OAR 660-0] 1-005 defines projects that must be included in public facility plan
project lists for water, wastewater, and storm water. These definitions are shown
in the keys of Planned Facilities Maps 1,2, and 3 in this Public Facilities and
Services Plan.
7.
In accordance with ORS 195.020-080, Eugene, Springfield, Lane County, and
special service districts are required to enter into coordination agreements that
define how planning coordination and urban services (wat~r; wastewater; fire;
parks, open space, and recreation; and streets, roads, and mass transit) will be
provided within the urban growth boundary.
E S. fi IdM I' A P bl' F '1': dS" PI Date Received
ugene- pnng Ie etropo ltan rea u IC aCI Itles an ervlCes an ,
MAY 06 2008
Planner: BJ
8. 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 needs.
9. Duplication of services prevents the most economical distribution of public
facilities and services.
10. As discussed in the Public Facilities and Services Plan, a majority of Nodal
Development Areas proposed in TransPlan are serviceable now or in the short
term. The City of Eugene's adopted Growth Management Policy #15 states,
"Target publicly-financed infrastructure extensions to support development for
higher densities, in-fill, mixed uses, an~ nodal development."
Policies
G.l Extend the minimum level and full range of key urban facilities and services in an
orderly and efficient manner consistent with the growth management policies in
Chapter II-B, relevant policies in this chapter, and other Metro Plan policies.
G.2 Use the Planned Facilities Maps of the Public Facilities and Services Plan to
guide the general location of water, wastewater, stormwater, and electrical
projects in the metropolitan area. Use local facility master plans, refinement
plans, and ordinances as the guide for detailed planning and project
implementation.
G.3 Modifications and additions to or deletions from the project lists in the Public
Facilities and Services Plan for water, wastewater, and stormwater public facility
projects or significant changes to project location, from that described in the
Public Facilities and Services Plan maps I, 2 and 3, require amending the Public
Facilities and Services Plan and the Metro Plan, except for the following:
I) Modifications to a public facility project which are minor in nature and do
not significantly impact the project's general description, location, sizing,
capacity or other general characteristic of the project; or
2) Technical and environmental modifications to a public facility which are
made pursuant to final engineering on a project; or
3) Modifications to a public facility project which are made pursuant to
findings of an Environmental Assessment or Environmental Impact
Statement conducted under regulations implementing the procedural
provisions of the National Environmental Policy Act of 1969 or any
federal or State of Oregon agency project development regulations
consistent with that act and its regulations.
Date Rer.r.:.;ued
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan ,II
MAY 05 2008
Planner: 8J
G.4 The cities and Lane County shall coordinate with EWEB, SUB, and special
service districts operating in the metropolitan area, to provide the opportunity to
review and comment on' proposed public facilities, plans; programs, and public
improvement projects or changes thereto that may affect one another's area of
responsibility .
G.5 The cities shall continue joint planning coordination with major institutions, such
as universities and hospitals, due to their relatively large impact on local facilities
and seryices.
G.6 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 the affected jurisdictions.
G.7 Service providers shall coordinate the provision of faCilities and services to areas
targeted by the cities for higher densities, infill, mixed uses, and nodal
development.
G.8 The cities and county shall coordinate with cities surrounding the metropolitan
area to develop a growth management strategy. This strategy will address
regional public facility needs.
Services to Development Within the Urban Growth'Boundary: Water
Findin"~
1 ]. Springfield relies on groundwater for its sole source of water. Eugene Water &
Electric Board's,(EWEB) water source is the McKenzie River and EWEB is
developing groundwater sources. The identification of projects on the Public
Facilities and Services Plan planned facilities map does not confer rights to a
groundwater source.
Policies
G.9 Eugene and Springfield and their respective utility branches; EWEB, and
Springfield Utility Board (SUB), shall ultimately be the water service providers
within the urban growth boundary. '
G.l 0 Continue to take positive steps,to protect groundwater supplies. The cities,
,county, and other service providers shall manage land use and public facilities for
groundwater-related benefits through the implementation of the Springfield
Drinking Water Protection Plan and other wellhead protection plans.
Management practices instituted to protect groundwater shall be coordinated
among the City of Springfield, City of Eugene, and Lane County.
]2
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
'MAY 06 2008
Planner: BJ
G.11 Ensure that water main extensions within the urban growth boundary include
adequate consideration of fire flows.
G.12 SUB, EWEB, and Rainbow Water District, the water providers that currently
control a water source, 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.
Services to DeveIopmentWithin the Urban Growth Boundary:
Storm water
Findinl!s
] 2. Historically, stormwater systems in Eugene and Springfield were designed
primarily to control floods. The 1987 re-authorization of the federal Clean Water
Act required, for the first time, local communities to reduce stormwater pollution
within their municipal storm drainage systems. These requirements applied
initially to the City of Eugene and subsequent amendments to the Act extended
these requirements to Springfield and Lane County.
13. Administration and enforcement of the Clean Water Act stormwater provisions
occur at the state level, through National Pollutant Discharge Elimination System
(NPDES) permitting requirements. Applicable jurisdictions are required to obtain
an NPDES storm water permit from the Oregon Department of Environmental
Quality (DEQ), and prepare a water quality plan outlining the Best Management
Practices (BMPs) to be taken over a five-year permit period for reducing
stormwater pollutants to "the maximum extent practicable."
14. Stormwater quality improvement facilities are most efficient and effective at
intercepting and removing pollutants when they are close to the source of the
pollutants and treat relatively small volumes of runoff.
15. The Clean Water Act requires states to assess the quality of their surface waters
every three years, and to list those waters that do not meet adopted water quality
standards. The Willamette River and other water bodies have been listed as not
meeting the standards for temperature and bacteria. This will require the
development of Total Maximum Daily Loads (TMDLs) for these pollutants, and
an allocation to point and non-point sources.
] 6. The listing of Spring Chinook Salmon as a threatened species in the Upper
Willamette River requires the application of Endangered Species Act (ESA)
provisions to the salmon's habitat in the McKenzie and Willamette Rivers. The
decline in the Chinook Salmon has been attributed to such factors as destruction
of habitat through channelization and revetment ofriver banks, non-point 'source
pollution, alterations of natural hydro graph by increased impervious surfaces in
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
13 '
MAY 06 2008
Planner: 8",!
the basin, and degradation of natural functions of riparian lands due to removal or
alteration of indigenous vegetation. '
17. There are many advantages to keeping channels open, including, at a minimum,
natural biofiltration of stormwater pollutants; greater ability to attenuate effects of
peak stormwater flows; retention of wetland, habitat, and open space functions;
and reduced capital costs for stormwater facilities. '
18. An increase in impervious surfaces, without mitigation, results in higher peak
flows during storm events, less opportunity for recharging of the aquifer, and a
decrease in water quality.
19. Storm water systems tend to be gravity-based systems that follow the slope of the
land rather than political boundaries. In many cases, the natural drainageways
such as streams serve as an integral part of the stormwater conveyance system. '
20. In general, there are no programs for stormwater maintenance outside the Eugene
and Springfield city limits, except for the Lane County Roads Program. State law
limits county road funds for stormwater projects to those located within the public
, ,
right-of-way.
21. Filling in designated floodplain areas can increase flood elevations above the
elevations predicted by Federal Emergency Management Agency (FEMA)
models, because the FEMA models are typically based only on the extent of
development at the time the modeling was conducted and do not take into account
the ultimate buildout of the drainage area. This poses risks to other properties in
, or adjacent to floodplains and can change the hydro graph of the river.
Policies
G.B Improve surface and ground water quality and quantity in the metropolitan area
by developing regulations or instituting programs for stormwater to:
a. Increase public awareness of techniques and practices private individuals
can 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
manage pre- and post-construction storm runoff, including erosion, velocity,
pollutant loading, and drainage;
14
d. Increase storage and retention and natural filtration of storm runoff to lower
and delay peak storm flows to settle out pollutants prior to discharge into
waterways;
. " Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan '
MAY 06 2008
Planner: BJ
e. Require on-site controls and development standards, as practical, to reduce
off-site impacts from storm water runoff;' ,
f. Use natural and simple mechanical treatment systems to provide treatment
for potentially contaminated runoff waters;
g. Reduce street-related water quality and quantity problems;
h. Regulate use and require containment and/or pretreatment of toxic
substances;
1. Include containment measures in site review standards to minimize the
effects of chemical and petroleum spills; and
J. Consider impacts to ground water quality in the design and location of dry
wells.
G.I4 Implement changes to stormwater facilities and management practices to reduce
the presence of pollutants regulated under the Clean Water Act and to address the
requirements of the Endangered Species Act.
G.15 Consider wellhead protection areas and surface water supplies when planning
stormwater facilities.
G.I6 Manage or enhance waterways and open stormwater systems to reduce water
quality impacts from runoff and to improve stormwater conveyance.
G.17 Include measures in local land development regulations that minimize the amount
of impervious surface in new development in a manner that reduces stormwater
pollution, reduces the negative effects from increases in runoff, and is compatible
with Metro Plan policies.
G.18 The cities and Lane County shall adopt a strategy for the unincorporated area of
the urban growth boundary to: reduce the negative effects of filling in floodplains
and prevent the filling of natural drainage channels except as necessary to ensure
public operations and maintenance of these channels in a manner than preserves
and lor enhances floodwater conveyance capacity and biological function.
G.I9 Maintajn flood storage capacity within the floodplain, to the maximum extent
practical, through measures that may include reducing impervious surface in the
floodplain and adjacent areas,
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY 0 SS 2008
Planner: B~j
Services to Development Within the Urban Growth Boundary:
Electricity .
Findin~
22. According to local municipal utilities, efficient electrical service is often
accomplished through mutual back-up agreements and inter-connected 'systems
are more efficient than isolated systems. .
Policies
G.20 The electric service providers will agree which provider will serve areas about to
be annexed and inform the cities who the service provider will be and how the
transition of services, if any, will occur.
Se,rvices to Development Within the Urban Growth Boundary:
Schools
FindiDl>~
23. ORS 195.1] 0 requires cities and counties to include, as an element of their
comprehensive plan, a school facility plan for high growth districts prepared by
the district in cooperation with the city or county; and for the city or county to
initiate the planning activity. The law defines high growth districts as those that
have an enrollment of over 5,000 students and an increase in enrollment of six
percent or more during the three most recent school years. At present, there are
no high growth school districts in the urban growth boundary.
24. ORS ] 97.296(4)(a) states that when the urban growth boundary is amended to
provide needed housing, "As part ofthis process, the amendment shall include
sufficient land reasonably necessary to accommodate the siting of new public
school facilities. The need and inclusion of lands for new public school facilities
shall be a coordinated process between the affected public school districts and the
local government that has the authority to approve the urban growth boundary."
25. 'Enrollmentprojections for the five public school districts in the metropolitan area
and the University of Oregon and Lane Community College (LCC) are not
consistent. Bethe] School District #52 and the University of Oregon expect
increases while Springfield and Eugene School Districts and LCC are
experiencing nearly flat or declining enrollments. Enrollment is increasing fastest
in the elementary and high school attendance areas near new development.
26. Short-term fluctuations in school attendance are addressed through the use of
adjusted attendance area boundaries, double shifting, use of portable classrooms,
and busing. School funding from the state is based on student enrollment for
school distriCts in the State of Oregon. This'funding pattern affects li/It<ate Re,,' d
' u ~~
] 6 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan .
MAY 06 2008
Planner: B~j
,
willingness of districts to allow out-of-district transfers and to adjl!st district
boundaries. Adjustments in district boundaries may be feasible where there is no
,
net loss or gain in student enrollments between districts.
I
27. Creating or retaining small, neighborhood schools reduces the need for busing and
provides more opportunity for students to walk or bike to school. Quality smaller
schools may allow more parents to stay in established neighborhoods and to avoid
moving out to new subdivisions on the urban fringe or to bedroom communities.
However, growth patterns do notalways respect school district boundaries, For
-example, natural cycles of growth and neighborhood maturation result in uneven
geographic growth patterns in the metropolitan area, causing a disparity 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.
28. Long-range enrollment forecasts determine the need to either build new schools,
expand existing facilities, or close existing schools. Funding restrictions imposed
by state law and some provisions in local codes may discourage the retention and
redevelopment of neighborhood schools. Limits imposed by state law on the use
of bond funds for operations and maintenance make the construction of new,
lower maintenance buildings preferable to remodeling existing school buildings.
In addition, if existing schools were expanded, some school sites may not meet
current local parking and other code requirements.
29. Combining educational facilities with local park and recreation facilities provides
financial benefits to the schools while enhancing benefits to the community. The
Meadow View School and adjacent City of Eugene community park is an
example of shared facilities.
Policies
G.2 J The cities shall initiate a process with school districts within the urban growth
boundary for coordinating land use and school planning activities, The cities and
school districts shall examine the following in their coordination efforts:
a. The need for new public school facilities and sufficient land to site them;
b. How open enrollment policies affect school location;
c. ,The impact of school building height and site size on the buildable land
supply;
d. The use of school facilities for non-school activities and appropriate
reimbursement for this use;
e. The impact of building and land use codes on the development and
redevelopment of school faCilities;
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
17
MAY 06 2008
Planner: BJ
f. Systems development charge adjustments related to neighborhood
schools; and,
g. The possibility of adjusting boundaries, when practical and when total
enrollment will not be affected, where a single, otherwise internally'
cohesive area is divided into more than one school district.
G.22 Support financial and other efforts to keep neighborhood schools open and to
retain schools sites in public ownership following school closure.
G.23 Support the retention of University of Oregon and Lane Community College
facilities in central city areas to increase opportunities for public transit and
housing and to retain these schools' attractiveness to students and faculty.
Services to. Develo.pment Within the Urban Gro.wth Bo.undary:
So.lid Waste "
Findin!!s
30. Statewide Planning Goal 11 requires that, "To meet current and long-range needs,
a provision for solid waste disposal sites, including sites for inert waste, shall be
included in each plan."
Policies
G.24 The Lane County Solid Waste Management Plan, as updated, shall serve as the
guide for the location of solid waste sites, including sites for inert waste, to serve
the metropolitan area. Industries that make significant use of the resources
recovered from the Glenwood solid waste transfer facility should be encouraged
to locate in that vicinity.
Services to. Areas Outside the Urban Growth Bo.undary
Finrlinl>'s
3]. Providing key urban services, such as water, to areas outside the urban growth
boundary increases pressure for urban development in rural areas. This can
encourage premature development outside the urban growth boundary at rural
densities, increasing the cost of public facilities and services to all users of the
systems.
32. Land application ofbiosolids, treated wastewater, or cannery waste on
agricultural sites outside the urban growth boundary for beneficial reuse of treated
wastewater byproducts generated within the urban growth boundary is more
]8
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY 06 2008
Planner: BJ
efficient and environmentally beneficial than land filling or other means of
disposal.
33. Lane County land use data show that, outside the urban growth boundary, land
uses consist of:
I) Those which are primarily intended for resource management; and
2) Those where development has occurred and are committed to rural
development as established through the exceptions process
specified in Statewide Planning Goal 2.
Policies
G.25 Wastewater and water service shall notbe provided outside the urban growth
boundary except to the following areas, and the cities may require consent to
annex agreements as a prerequisite to providing these services 'in any instance:
a. The area of the Eugene Airport designated Government and
Education on the Metro Plan diagram, the Seasonal Industrial
Waste FacilitY, the Regional Wastewater Biosolids Management
Facility, and agricultural sites used for land application of biosolids
and cannery byproducts. These sites serve the entire metropolitan
area.
b. An existing deveiopment outside the urban growth boundary when
it has been determined that it poses an immediate threat of public
health or safety to the citizens within the Eugene-Springfield urban
gr~wth boundary that can only be remedied by extension of the
servIce.
In addition, under prior obligations, water service shall be provided to land within
the dissolved water districts of Hillcrest, College Crest, Bethel, and Oakway.
G .26 Plan for the following levels of service for rural designations outside the urban
growth boundary within the Metro Plan Boundary:
a. A{!ficulture. Forest Land. Sand and Gravel. and Parks and Onen Snace.
No minimum level of service is established.
b. Rural Residential. Rural Commercial. Rural Industrial. and Government
and Education. On-site sewage disposal, individual water systems, rural
level of fire and police protection, electric and communication service,
schools, and reasonable access to solid waste disposal facility.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
19
MAY 06 2008
Planner: BJ
Locating and Managing Public Facilities Outside the
Urban Growth Boundary
FindiDlJ~
34. In accordance with Statewide Planning Goals and administrative rules, urban
water, wastewater, and stormwater facilities may be located on agricultural land
and urban water and wastewater facilities may be located on forest land outside
the urban growth boundary when the facilities exclusively serve land within the
urban growth boundary, pursuant to Oregon Administrative Rules (OAR) Chapter
, 660 Divisions 006 and 033. ' '
35. In accordance with Statewide Planning Goals and administrative rules, water and
wastewater facilities are allowed in the public right-of-way of public roads and
highways.
36. The Public Facilities and Services Plan planned facilities maps show the location
of some planned public facilities outside the urban growth boundary and Plan
boundary, exclusively to serve land within the urban growth boundary. The
ultimate construction of these facilities will require close coordination with and
permitting by Lane County and possible Lane County Rural Comprehensive Plan
amendments.
37. State Planning Goal 5 and OAR 660-023-0090 require state and local jurisdictions
to identifY and protect riparian corridors.
38. In accordance with OAR 660-033-0090,660-033-0130(2), and 660-033-0120,
building schools on high value farm land outside the urban growth boundary is
prohibited. Statewide Planning Goals prohibit locating school buildings.on farm
or forest land within three miles outside the urban growth boundary.
Policies
G.27 Consistent with local regulations, locate new urban water, wastewater, and
stormwater facilities on farm land and urban water and wastewater facilities on
forest land outside the urban growth boundary only when the facilities exclusively
serve land inside the urban growth boundary and there is no reasonable
alternative. ' '
G.28 Locate urban water and wastewater facilities in the public right-of-way of public
roads and highways outside the urban growth boundary, as needed to serve land
within the urban growth boundary.
G.29
Facility providers shall coordinate with Lane County and other local jurisdictions
and obtain the necessary county land use approvals to amend the Lane County
Rural Comprehensive Plan, or the Metro Plan, as needed and consistent with state '
, . , Date Recqived
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
20
Planner: BJ
law, to appropriately designate land for urban facilities located outside the urban
growth boundary or the Plan boundary.
G.30 The cities shall coordinate with Lane County on responsibility and authority to
address stormwater-related issues, outside the Plan boundary', including outfalls
outside the Springfield portion of the urban growth boundary.
G.31 Measures to protect, enhance, or alter Class F Streams outside the urban growth
boundary, within the Plan boundary shall, at a minimum, be consistent with Lane
'County's riparian standards.
G.32 New schools within the Plan boundary shall be built inside the urban growth
boundary. '
Financing
Findin~
39. ORS 1 97.7]2(2)(e) states that the project timing and financing provisions of
public facility pll\ns shall not be considered land use decisions.
40. ORS 223.297 and ORS 223.229 (1) do not permit the collection of local systems
development charges (SDCs) for fire and emergency medical service facilities and
schools, limiting revenue options for these services. Past attempts to change this
law have been unsuccessful.
4]. . Service providers in the metropolitan area use SDCs to help fund the following
facilities:
. Springfield: stormwater, wastewater, and transportation;
., Willamalane Park and Recreation District: parks;
. Springfield Utility Board, Rainbow Water District: water;
. Eugene: stormwater, wastewater, parks, and transportation; and,
. EWEB: water.
42. Oregon and California timber receipt revenues, a federally funded .source of
county road funds, have declined over the years and their continued decline is
expected.
43. Regular maintenance reduces long-term infrastructure costs by preventing the
need for frequent replacement and rehabilitation. ORS 223.297 to 223.314 do not
allow use of SDCs to fund operations and maintenance.
44. The assessment rates of Eugene, Springfield, and Lane County are each different,
creating inequitable financing of some infrastructure improvements in the
metropolitan area.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Fl?cl:1ived
MAY 06' 2008
Planner: BJ
.Policies
G.33 Changes to Public Facilities and Services Plan project phasing schedules or
anticipated costs and financing shall be made' in accordance with budgeting and
capital improvement program procedures of the affectedjurisdiction(s).
G.34 Service providers will update capital improvement programming (planning,
programming, and budgeting for service extension) regularly for those portions of
the urban growth boundary where the full range of key urban services is not
available. '
G.35 Require development to pay the cost, as determined ,by the local jurisdiction, of
extending urban facilities. This does not preclude subsidy, where a development
will fulfill goals and recommendations of the Metro Plan and other applicable
plans determined by the local jurisdiction to be of particular importance or
concern.
G.36 Continue to implement a system of user charges, SDCs, and other public
financing tools, where appropriate, to fund operations, maintenance, and
improvement or replacement of obsolete facilities or system expansion.
G.37 . Explore other funding mechanisms at the local level to finance operations and
maintenance of public facilities.
G.38 Set wastewater and stormwater, fees at a level commensurate with the level of
impact on, or use of, the wastewater or storm water service.
G.39 The cities and Lane County will continue to cooperate in developing assessment
practices for inter-jurisdictional projects that provide for equitable treatment of
properties, regardless of jurisdiction.
Other Metro Plan Text Amendments
Chapter I. Introduction
C. 'plan Contents
Annendices
The following information, available at Lane Council of Governments, was
originally intended to be included as appendices to this Plan, but it was not
formatted into appendices:
Appendix A Project lists and Planned Facilities Maps in Chapter II of the
Eugene-Springfield Metropolitan Area Public Facilities and
Services Plan
22
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rec~ived,
MAY 06 2008
Planner: BJ
Appendix B List of Refinement and Functional Plans and Map of Refinement
Plan Boundaries
Appendix C List of Exceptions and Maps of Site-Specific Exception Area
Boundaries
Appendix D 'Auxiliary Maps Showing the Following:
. Fire station locations
. Urban growth boundary ,
. Greenway boundary
. Schools
. Parks
Chapter II-B. Gr()wth Management
Policies
] . The urban growth boundary and sequential development shall continue to be
implemented as an essential means to achieve compact urban growth. The
provision of all urban services shall be concentrated inside the urban growth
boundary.
2. The urban growth boundary shall lie along the outside edge of existing and
planned rights-of-way that form a portion of the urban growth boundary so that
the full right-of-way is within the urban growth boundary.
9. Land within the urban growth boundary may be converted from urbanizable to
urban only through annexation to a city when it is found that:
A minimum level of key urba~ facilities and services5 can be provided to
the area in an orderly and' efficient manner;
a.
b.
There will be a logical area and time within which to deliver urban
services and facilities. Conversion ofurbanizable land to urban shall also
be consistent with the, Metro Plan.
10. A full range of key urban facilities and services shall be provided to urban areas
according to demonstrated need and budgetary priorities.
5 See Chapter V. Glossary section of this chapter for the proposed definition ofkey urban facilities and services,
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 'Date R~cf.:!i\fed
MAY 06 7008
Planner: BJ
Chapter III-E. Environmental Design
Policies
2. Natural vegetation, natural'water features, and drainageways shall be protected
and retail)ed to the maximum extent practical. Landscaping shall be utilized to
enhance those natural features. This policy does not preclude increasing their
conveyance capacity in an environmentally responsible manner.
Chapter V. Glossary
Best Manal!:ement Practices ffiMPs): Management practices or techniques used to guide
design and construction of new improvements to minimize or prevent adverse environmental
impacts. Often organized as a list from which those practices most suited to a specific, site
can be chosen to halt or offset anticipated problems.
Class F Streams (Class I Streams in Lane Code): Streams that have fish use, including fish
use streams that have domestic water use, as defmed in OAR 629-635.
Drinkinl!: water orotection (source water orotection): 'Implementing strategies within a
drinking water protection area to minimize the potential impact of contaminant sources on
the quality of water used as a drinking water source by a public water system.
Extension of urban facilities: Construction of the facilities necessary for future service
provISIon.
Floodolain: The area adjoining a river, stream, or watercourse that is subject to ] OO-year
flooding. A 100-year flood has a 1 percent chance of occurring in anyone year as a result of
periods of higher-than-normal rainfall or streamflows, high winds, rapid snowmelt, natural
stream blockages, tsunamis, or combinations thereof.
Floodwav: The normal stream channel and that adjoining area ofthe floodplain needed to
convey the waters of a 100-year flood.
Groundwater: Water that occurs beneath the land surface in the zone(s) of saturation.
lmoervious surface: Surfaces that prevent water from soaking into the ground. Concrete,
asphalt, and rooftops are the most common urban impervious surfaces.
Kev urban facilities and services:
o Minimum level: Wastewater service, stormwater service, solid waste
management, water service, fire and emergency medical serVices, police
protection, city-wide parks and recreation programs, electric service, land use
controls, communication facilities, and public schools on a district-wide basis (in
other words, not necessarily within walking distance of all students served).
24
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rer~i.\fed
MAY 06 2008
Planner: BJ
. Full ramre: The minimum level of key urban facilities and services plus urban
public transit, natural gas, street lighting; libraries, local parks, local recreation
facilities and services, and health services.
Public Facility Proiects
Public Facility ProjeCt lists and maps adopted as part of the Metro Plan are defined as
follows:
Water:
Source, reservoirs, pump stations, and primary distribution systems. Primary
distribution systems are transmission lines 12 inches or larger for SUB and 24
inches or larger for EWE8.
Pump stations and wastewater lines 24 inches or larger.
Drainage/channel improvements and/or piping systems 36 inches or larger;
proposed detention ponds; outfalls; water quality projects; and waterways and
open systems.
Wastewater:
Stormwater:
Specific projects adopted as part cifthe Metro Plan are described in the Project Lists and their
general location is identified in the Planned Facilities Maps in Chapter II of the Eugene-
Springfield Metropolitan AreaPublic Facilities and Services Plan.
Sllecial service district: Any unit of local govemment, other than a city, county, an
association oflocal governments performing land use planning functions under ORS 195.025
authorized and regulated by statute, or metropolitan service district formed wider ORS
Chapter 268. Special service districts include but are not limited to the following: domestic
water district, domestic water associations and water cooperatives; irrigation districts;
regional air quality control authorities; rural fire protection districts; school districts; mass
transit districts; sanitary districts; and park and recreation districts.
Svstem develooment chare:e (SDC): A reimbursement fee, an improvement fee, or a
combination thereof assessed or collected at the time of increased usage of a capital
improvement, connection to the capital improv'ement, or issuance of a development permit or
building permit.
Urban lITowth boundarv: A s'ite-specific line, delineated on a map or by written description,
that separates urban and urbanizable lands from rural lands.
Urban reserve area: Rural areas located beyond the urban growth boundary not needed to
satisfy urban demands associated with the 20-year planning population.
[Delete graphic on page V-5 and references thereto.]
Urban facilities: Facilities connected to, or part of, a municipal public facility system,
Urban water and wastewater service orovision: The physical cOrulection to the water or
wastewater system. '
Eugene-Springfield Metrop~litan Area Public Facilities and Services'PlDate ReG~)iVed
MAY 06 2008
Planner: BJ
Project Lists and Planned Facilities Maps
This section presents the project lists and maps for planned water, wastewater, stormwater, and
electrical facilities. These lists and maps are adopted as part of the Metro Plan, but will be
physically located in this refinement plan. The recommendations in this chapter replace the
following project lists and maps in the 1987 Metro Plan:
. Appendix A
. Appendix D, Solid Waste Sites6
. Appendix D, Electrical Substations and Transmission Lines
In each of the following sections, project lists are recommended to meet the short- and long"term
facility needs of the metropolitan area. Short-term projects can be provided within the next five
years. Long-term projects are anticipated to be built in six to 20 years, due to the constraints
described in Chapter IV.
Planned Water System Improvements
Planned short- and long-term water system improvement projects are listed in tables 1 and 2.
The general location of these facilities is shown in Map I: Planned Water Facilities.
Table 1
Eugene Water & Electric Board (EWEB) Water System Improvement Projects
1\~RrOJ~ect12!l
h ;z,,-,,"d''''' "j""..~.q
'7:Y"m\1/'ii"'\yY:;;i(i
<:Number,:
Short-Term
107 Green HilV Airport mainline
108 EWEB/Seneca 42-inch transmission line
109 City View reservoir (800)
110 Hayden Bridge Expansion and 10mg Reservoir and pump gallery
Lon!!- Term
218 Back-up well field development area
219 Havden Bridge- former fish hatchery intake modifications
220 Laurel Hill reservoir (850)
221 Laurel Hill reservoir and pump station (975)
222 Laurel Hill pump station (I 150)
223 Shasta reservoir (1 150)
224 Dillard reservoir (9751 and pump station (I 150)
225 Dillard reservoir (I 150)
26
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rer"'ived
MAY 0 6 2008,
6 See Chapter n"policy G.24,
Planner: BJ
Table 1
Eugene Water & Electric Board (EWEB) Water System Improvement Projects (continued)
",'>>',/;;"/;;1\ "';fi
.i'.c,roJect "
ili>~"~i;$;.,,,o-if+YR\d
~NumJjer:!
226 Elliot reservoir (607)
227 Willamette reservoir (1325)
228 Willamette pump station (1500)
229 Tiinberline reservoir (1100)
230 Timberline pump station (1325)
231 Gimple Hill reservoir (975) and pump station
232 Green Hill reservoir (800)
233 Green Hill reservoir (975)
234 Green Hill pump station (975)
235 Westside/Cantrell Hill reservoir (607)
236 Westside Transmission Main'
237 Glenwood/LCC Basin intertie
Table 2
Springfield Utility Board (SUB) Water System Improvement Projects
10]
102
103,
104
105
106
107
108
109
Short-Term
Install 24-inch line alon!( 1-]05
Install ]6-inch line to Glenwood
Install ] 6-inch line alon~. 3200 Street
Add well(s) in existing Thurston well field
Add wellat ]6"' and QStreet
Install new treatment at Thurston
Add well(s) near Thurston Wellfield
Install transmission lines along. Booth Kelly Road into the Natron Area
Install new source, Wil1amette Wellfield
Long-Term
Install 16- to IO-inch line in SP railroad ri~ht-of-wa'(
Install ]2 and l6-inch line along Thurston Road, Main street, and in South
Hills, to supply new development
I Pump station(s) to serve uPl?er levels
I Install ] 6-inch line on SP railroad rightcof-way south to Hayden Bridge Way
(RWD)
I Add upper level reservoir(s): (3'", 4"', 5"' level)
I Install ]6-inch line alonl?, Main Street
I Add welles) near 31 ~ and Marcola Rd.
I Add wells near lnterstate-5 and Game Farm Road North,
I Add wells in Natron area
I Install 12-inch line, Thurston to Main Street
202
203
204
205
209
211
2]2
214
2]5
2]6
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rer~ived
MAY 02$ 2008
Planner: B,,}
Planned Wastewater System Improvements
Planned short- and long-term wastewater system improvement projects are listed in tables
3 and 4. The general location of these facilities iS,shown in Map 2: Planned Wastewater
Facilities. ' '
Table 3
, City of Eugene Wastewater System Improvement Projects
n Pl'oiect?l!i" i'O"C'CfiNam'C'lDescl-iiI"
Ii, unib"'~ .
I Short-Term
I 100 ! West EUf,ene BVl'ass (48-inch)
10 1 I North River Road pump station
102 I North Willakenzie Gravity Sewers
103 I North Enid pump station
I Long-Term
200 I North Willakenzie pump station
201 I Awbrey Lane pump station
Table 4
City of Springfield Wastewater System Improvement Projects
Short-Term
104 I Jasper Road sewer extension
105 I Game Farm Road trunk sewer
106 I Gatewavn-Iarlow Road pump station upgrade
I Lon!{-Term '
202 I East Glenwood gravity sewer
203 I 19'" Street pump station
Planned Storm water 'System Improvements
Planned short-term and long-term stormwater system improvement projects are listed in
tables 5 and 6. The general location of these facilities is shown in Map 3: Planned
Stormwater Facilities.
Date Recqived
28
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 0 5 Z008
Planner: BJ
Table 5
City of Eugene Stormwater System Improvement Projects
8
9
10
II
12
13
23
14
15
16
17
18
]9
20
21
22
24
25
26
27
28
29
30
31
32
33
34
35
I
2
Willakenzie Basin Short-Term
River Point Pond Outlet Channel
Federal Priority Project- Delta Ponds Enhancement
Willakenzie Basin Lonf!-Term
Gilham Road System Water Quality Facility
Gilham Road S'(stem Culvert Reolacement
Avers Pond Outfall Retrofit
Wetland Adjacent Coburg & Country Farm Roads
Modify Ascot Park Open Waterway
Laurel Hill Basin Shorl- Term
Riverview/ Augusta Bypass and System Improvements
Minor System Between Riverviewand Augusta
1-5 and A ugusta Water Quality Facility
Riverview/ Augusta Minor Storm Drainage Svstem Plan
, Bethel Danebo Basin Shorl- Term
, i Green Hill Tributary Stream Enhancements
: Culvert Rep}acement in Roosevelt Channel
West Irwin Storm
Bethel Danebo Basin Lonf!-Term
Royal Node Infrastructure
Retrofit Empire Park Pond
Increase Pipe Sizes Along Bell Avenue
Green Hill Tributary Water Quality Facility
Wallis Street Culvert (Bertelseri Slough)
Increase Pipe Sizes Along Garfield Street
Amazon Creek Basin Short-Term
I Kinne~ Park Neil'hborhood Facility
I Federal Priority Project- Upper Amazon Creek Restoration
Martin Drive Pipe Improvements
I Hilvard Street Pipe Improvements
Amazon Creek Basin Long-Term
Federal Priority Project- Central Amazon Creek Restoration
Jackson Street Pipe Imorovements
North Laurelwood Water Quality Facility
South Laurelwood Water Quality Facility
Pine View Neighborhood Facility
43'" A venue Pipe Improvements
Morse Ranch Park Piee Improvements
Option B- Laurelwood Flood Control Facilities and Pipe
lmerovements
Option B- Mt. Cavalrv Pipe Im1?rovements
Mt. Cavalry Water Quality Facility
Option A- Cleveland Street Flow Diversion
3
4
5
6
7
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
I
I
I
I
I
!!'"\ .1 R '. d
UdL~ eCo,lVe
29
MAY 06 Z008
Planner: BJ
30
j
Table 5
City of Eugene Stormwater System Improvement Projects (continued)
36 Option B- Brittany Street Pipe Improvements
37 Option B- Windsor Circle Pipe Improvements
38 Water Quality Facility West of Hawkins Lane.
39 Water Quality Facility at Sam R, Street
40 Water Quality Facility at Interior,Street
Willow Creek Basin Short-Term
4] Willow Creek- West Branch Culvert/Channel Retrofits
Willow Creek Basin Lon~-Term
42 Realign/Restore Main Stem Willow Creek
43 Willow Creek- East Branch Culvert/Channel Retrofits
Willamette River Short- Term
44 Federal Priority Proiect- Willamette River Bank Restoration
45 Polk Street Water Quality Facilities
I Willamette River Lon~-Term
46 I Federal Priority Proi,ect- Eu!(ene Millrace Enhancements
I City-Wide Proiects Short-Term (not mapped)
I Channel Easement Acquisition
I Stonnwater Rehabilitation
I City-Wide Proiects Lon~-Terni (not mapped)
I Channel Easement Acquisition
I Stonnwater Rehabilitation
I River Road-Santa Clara Basin Short-Term
47 Willamette Overflow Channel Upgrade
48 lrvinglon Road Drainage Improvements
49 River Road Drainage Improvements
River Road-Santa Clara Basin Lon!!- Term
50 Water Quality Project
51 Flat Creek Low Flow Channel Upgrade
52 Upgrade Existing Pipe
53 A-] Channel Upgrade
54 Water Quality Facility
55 Flat Creek Water Quality Facility
56 Spring Creek Water Quality Proiect
57 Sprinll Creek Culvert Replacement
58 A-I Channel, West Tributary Improvements '
Euge~e-Springfield Metropolitan Area Public Facilities and Services Plan
Date Recoived
MAY 0 6 2008
Planner: BJ
Table 6
City of Springfield Stormwater System Improvement Projects
100
10]
102
103
,104
105
106
107
108
109
110
] lI-A
]] loB
200-A
200-B
200-C
200-0
200-E
200-F
200-G
201
202
203
204
205
206
207
208
209
210
21]
r:rroject'NamelDescrIAtlon'
~"''''F;i'''' "wt':.y"","k~;"~'
.".4<. ["i:!1i'+:0iin:M",",
t~~~h~l~;jfrm:;::AA'
Short-Term
Sports Way detention pond
Maple Island Slough Outfall
Deadman Ferry Outfall
Aster Street system
Jas.fer Slough outfall
20 Street Outfall
T Street detention pond
Pierce Industrial Park drainage
Mill Race Enhancements, including new intake
Jaseer/Natron outfalls and associated pipe svstems
Hil',hway 12611-105 draina~e improvements
Cedar Creek: 69'" Street Channel improvements
Cedar Creek: nnn Street Channel Improvements
LonJ!-Term
Cedar Creek: OutfalllDetention at Lively Park/McKenzie River
Cedar Creek: Thurston Middle School Channel Improvements
Cedar Creek: 66'" Street Outfall
Cedar Creek: 75'" Street Outfall
Cedar Creek: Gossler Bank control project
Cedar Creek: Diversion System
Cedar Creek: East Thurston Road/Hwy 126 Outfall and Associated
Piping ,
Thurston Road Interceptor
Highway] 26 and 87m Interceptor and Outfall
South 79m Street System
Rocky Point Drive System and Outfall
Roseborough Detention Pond
Borden Outfall Upgrade
Ash Street Outfall
Manor Drive Outfall
] 6'" Street Outfall
Jasper Slou~h Improvements
Hayden Bridge Road Interceptor
Date Re('~ lved
MAY (}'l~ 2008
Eugene-SpringfieJd Metropolitan Area Public Facilities and Services Plan
Planner: BlJ
~- ~,
Planned Electrical System Improvements
Planned electrical system improvement projects are listed in tables 7 and 8. The general
location of these facilities is shown in Map 4: Planned Electrical Facilities. No time
frame was identified for these projects.
TallIe 7
EWEB Planned Electrical System Improvement Projects
69KY Transmission Line - (existing, corridor)
I I SKY Transmission Line - (two alternate routes)
River Loop Substation
Airport Substation
Barger Substation
HilIaire Substation
Crow Substation
Coburil Substation
Bloomberg Substation
Goshen Substation
lrvington Substation
Table 8
SUB Planned Electrical System Improvement Projects
1~."~,,,.p,.'roC.. \Pro"ecttNante/]')escrihjj
<,"Y_Ji'h.",.,
;'jjNum e
I 12
I 13
I 14
I IS
I 16A
I l6B
Solid Waste
I Glenwood Substation
Marcola Road Substation
I East Springfield to Thurston Transmission Line
Thurston to Marcola Road Transmission Line
I Jasper Road to 10" Street Extension (alternative A)
I Jasper Road to 10" Street Extension (altemative B)
The Lane County Solid Waste Management Plan serves as the guide for solid waste sites
and facilities in the Eugene-Springfield Metropolitan Area. This management plan
contains provisions for solid waste disposal sites, including sites for inert waste (see
recommended Metro Plan Policy #G. 24 in Chapter 11).
. 32
Date Reco.ived
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 0 6 2008
Planner: BJ
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Eug~"f),.Sp~i~gfie'd."Pl!bD,~ F~c:,"iJi'~;a.~~'Sery.ic'$ ,p,a.,~'
Planned Water Facilities
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Metro Plan Boundary
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Eugerle-Springfieid' PubiicFaciUties arid ServicesPBal1l
Planned Wastewater Facilities
ProJ~ct6 {lf1J d"!Jcrib&1/rt Tabltl!J 3 and 4.
Key
+: Propo5ed Pump Station!';
_ Propae;edWlifl~.aurllne5of24~
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Eug~ne';Springfield Public facilities and Sell"vi"c:e~ Plan
Planned Electrical Facilities
ProJ~ct!5 S~ a~rib&i In T8bJ~5 7 and 8.
Key
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Ill. ,Policy Analysis
The purpose of this chapter is to take the reader through the process of understanding how the
Metro Plan text will change as a result of the recommended text amendments in Chapter II and
why these changes are proposed.
Introduction
The Metro Plan text amendments recommended in Chapter II of this plan are the result of a
comprehensive policy analysis by the Technical Advisory Committee and the metropolitan
planning directors and legal counsel. This analysis considers recent changes to: federal and state
law; local conditions, goals, and policies; and service delivery and financing options. These
considerations are addressed in the recommended Metro Plan findings and policies. The issues
addressed in the proposed Metro Plan findings and policies are presented in Chapter IV. Public
Facilities Needs Analysis, Chapter V. Financing Methods and Alternatives, and Appendix C: '
Existing State and Local Policy Framework.
In order to show how the Metro Plan text is proposed to change, proposed deletions to Metro
Plan text are shown in strike eut and additions are underlined. For each amended Metro Plan
finding or policy, the new policy or finding number is inserted in front of the current number,
which is struck-out. The existing Metro Plan page number for all of the amended text is shown
in parentheses following each recommended amendment.
(
These Metro Plan text amendments propose a complete reordering of the findings and policies ill
Metro Plan Chapter III-G, as well as movement and ame~dment of polices and definitions in
other chapters of the Metro Plan. The proposed order is shown below with findings and policies
proposedJor deletion listed first, followed by the amendment or amendments that replace theme
A notation in italics explains the rationale for each text amendment, or set of amendments. In a
few instances, examples of ways a policy may be implemented are provided to help further the
reader's understanding of the policy's intent. The'se example implementation measures are not
, .
proposed for adoption. They are included only as a supplemental explanation for a few policies
when it seemed helpful.
Chapter ID-G. Public Utilities, Services, and Facilities Element
A proposed rewrite of the introductory text to this elementfollows this struck-out existing text.
This rewrite provides the context for current local policy and practice and reflects changes in
state law,
ro
-I.
ruhlie Utilities, Sel'Yiees, aDd Faeilities ElelBeHt
This elemeRt eORsiders the jlro'.:;:;::.~. af water, se:Ner~, jlo',ver, ej:.:zEt.:::.::: ;::,,*L Jafety, aRa I .
other pregrams the EugeRe SjlrlHgfield IHott-o,..3lJtall area Recasts fURO!:&" F.)D~teORe(''-'i\fed
Eugene_Springfield Metropolitan Area Public Facilities and Services Plan 41
MAY 0 62008
Planner: B"J
tlle most 1'::7.:, :!':ese utilities, servies:, ;;r.c ~aeilities are provided Elr sHpervis~i t;; jlHblie or
~.:;: y:.:b~:..:i ~geRei':J, ~J~ :hey eaR t:!:: i:::h:lde oth,:,~- .~vCC""a.T" ~~~~-''i........d'lity services of a
private Ratm~, ~;;~I: ;;s c1mreHe~, j7.;>;;:':z seHoElI:, ;-.;-.a ~.35f*tr!.:. 1:-; :-.:;:}. ;;;eas, Ilsers of
facilities and serviees ar~,-,:l~",,;-~e.a, ij~Llleadinb 1~ ;;;~ ;;~ade(]llate f;;-;~,.;;~ ::-.:.3e-te
~uppo. t a hi~er level af serviee. Olltside :.!J~ ;;;1:..:.;", 6fffi\~;. ~;j;;;.j.:.;;., little or ~El ,
tJe.v.o:~;;;";.:nt IS expeeted :: ::::ir z: 2ompa,cd to area: '::;.'1:;:: :lIe-urt.:.;". b,e',v'.h sElundary.
As tHe metr{)pEllitaA ar:;; g:';n in populat:::: ;;::j area, tile deffllHla fElr tHese serviL~"..;~:
iRcrease sllss!l:.rt.:;;!!j, r~'i:;iring :arefullHld eElElrdinatd ;;1;;:-~-.:;<g-lHI:! ~"'':?5'''m'''n~
pHslis's iflvssHK:-Jt ::: lI:-;a :~l:edHliRg Elf these pHslic facilitie: ;;::a ;:::-:;;:-:::::: :H::;!a b
viewed as Elfie oftH_ ..._~_. ...JaRS Elf impLm"'n,;,.g tile GeRen:' 0':1:-;,
The Hrbafl serviee area CElReept discllssed in CHllflter II, "Fl:n:!,,:::~:-Au! r~::1ciples," is aR
important part oftHis el~:::~:-t.. I: is inteflded tHat develvpm~;.: iR tHe metropEllitaA area will
re<jHir~ ::': !~l:3:-tH~ ::::::::nllm level of k"jl:rtr.: :;rvice at tHe time de'"eIElpmeflt is
cElmpleted. It is further inteflded tHa, eone~,;ed efforts 'Nil,: :,~ m':'Je..t" ...:l;ina~dy providc
tfle L!] ~::7.b:-ef,lcj :;~z,,:: :~:-:::e to tHesz l:rZl".5.'" TI::J elemeJ1t is aLo ;n~"'nJee...t: r:'::ie
tHe pHslic :::-;j rriv:!.:" ,~zt:r3 ":;i:t pE~i:s for de-;:I:;:::-;".~3:;;I.:.:-.a pl"3grl:.r:1 aecisiElfl
ma!fu,5 r"'6_:tliflg Hfeafl serviees. fElr e~mmple, deveJElpmeAt :1:::;1<1 lle-ef>:;i:::::ted witH
tfle ;;l;;:-,;".;ne.,f..._.._:.lg, ::::i ~on,~uztiElR Elfkey Ilrban service:. TI::: "::ilI result ::-; ;:zlie
lHId privat: r..._.~;u; ,u.,.;n5' and efficient Hse of Htilities, services, and faeilities.
Key Hrban services are provided ifl t.fie meuElpolitan area by Z :::;7..:.,,,,, "'; ,:;overnmental
agencies, service aistric::, ;:;;!:E~ ::nd (]lIllsi pHblie Htilities Rfla coeperative agreemeRts.
baHe-'.::::;:-I.:"/ :: ~~:;:::1sible for a flHmber of key urban ,,,,~;zes iR the metropiJ/..::-;;:;-~
llf€ ::1:: ;::;3'ri6ea ~::;:-I.:"J -:;:<1:. These iflclHde Healt\: ::::a :Jeial serviees, s:U >::::::e
rnnnn5cment, tax eollectivn, and ~;'c-ZZ:;7.: :;;stem. Eligene aRd 8j'"f;r.;;;fiela pro'/ide key
Hrbafl sef"iiees to tHe citie5, sHch ::: 1:1;;;;;:::, ;'ire prEltection, impfElvea str~~~" pu:;~3 '
protection, emergency meaieal services, and stOfffl. sew~,o. ;'\.It:;~ <.:-.i ~:;a:: ;;;t3E~ utilities
provide J:t~~ key Hrbafl service!:, !::;~I: ::: '::i::er and telephone. ~p~~::). :3rvice districts are
also responsiblz, in s:r.::-zi:f:"f:, for slicH s:niz"s :':: .::ater and for otller:, :;;~h ;;: Jcnools
ci L: Jervice. r::::':ll~', :;:1der coeperatively e:1;:1:/;:I::a agreementj.:'~:..eefl LlHIe
CeHflty, Eugene, afld Springfiela, etHer Icey ur~:::-. :~:-;ices are proviaed. !Jl ~ha~pIe-ef
t:-::: :: ,:-:3 CElHIHY Service Disuiet, wt;~t :: ::3:::;;;::1:::.1 I;~' <';.: t.::t;Jpelitafl Wastewater
~1aflagement C27.:ci::::::;. ~-::::: :a:;:::7..:.r:: to recogfliz0 the r~:;~07.::t:H~.r' ~..;r., :"c.a
extent of tHese differeflt previaers of key:;;\::::: :::-;iees lHIi :: ;:;:";ide guiaeliRes for tHe
. . 3' ~"1ra' L .. r . H H
prsper operatl:n, 1l1'preve:r.~nt, i:r. ~::7.::::-;~' :;hl:7. :::-;;~es IfI me Wit t e
eempc;;: :;;1;;;:-; ;;rowtn f;;;::". ;;:-;a :Jrban service area Cvnecp~ of tHe Cc:-;~;-'" :,la:-;.
.'I!..,Se~ PcE~:z!: -; ;;::a ~::: Pi:6e 11 B 1.
IR pllHlRiRg fer pr:"::::a;J 3f key HrbaR services, it is Hseful to I,eep in m::::! :J::l distiflilti(m
betwe""o t~c; ~:'t:'UIT"C"n~ urban "c;rv;'Ce-ar.::.," -.",here:. :::::::::1\;UTl level oflubafl serviees is
::::l"."S:Z'~~ ':::11 be witHiR tHe Rear fuWfe, lHIa tHe "prsjeeted urbaR service are::," ':.L~I: ::
the estimated areG ";."tJ.-,::-; >:.l.:ch services will be fleeded te previae f:; a:':~kf',>.".~,".t fleeds
42
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
eyer the Ivn5 <onH. It is nevo"u.y.te J3HJ\'icle ]ceo' ;;;~:::: Jervice::::: 1: s3'l!leHtial maHHer
that recognize3 the cliffereAce Betwe::: ,~: 6Hff::.-.~ .:..-.d f,,-ajeet:j ;;:L:.;-. J~ITice areas.
I I' a .,.. ,"",' . j t; T' j
.~:: y :':-~-::::6 anpr......unmmme;-"1"Ur pl.tctl1V U"ClIl~leS, S0f\":Z:::S, z:.:: aetItleS, pres....:..rt '::'~-. ;1eaf
flflme Aeeds 0; ~;.,o m~tropolitaA are!: ;;!1;o;;lj ~e-m:! :n :c eoeroiAatec rr::C':::~oo5n;"^;n5
the 10Hg terr", ~ll;m,,~e lIeeds aAo service ar::::. ":1'.::: ;net:cj:;;E:mrwid: ~;;:j:~mtioH is
reflecteo ill th:: ::;w~;; mallaate~ P:J.;E~ Facilitie:: PI&T.. ~Ap;j;;: j:;;t~ic faeilities from the
0..1..1'_~. -"','-- PI"- ,.. . -,-~ -- PI ,,-_::- .----j,.. t F'"' 1\'
rt:tt1t.....L ......r-r........:.. ...... ..ue--tfh?Olf'or-cttCt::t""tt~ en pe-"-.l ... ~ arr-u ,a ... Jen0ffi ),
COAstru:;,:s:: s~,: :s hsed ufleH the ,.,:"a,;n5 pOllioA efth: PJ~E: L::iliti:s J:'I::::, l::;-t
001'.::1 L..:..:....: ::: ,:rr:;T.iS aHe fiHElIlv:..o _.: :ontrol/8a solely BY the :::;:i'.::1 ;:::j::svemeHts
'-- --d.k.rl' - ":_~'..'-L..."] ;.._:_~'_';~_n
j3ffign:m_,uu_b _u~C:'t proc;o~. u.;:tl.I...JU"tIT"')'"__.~;:..LTTUTr.'r. .
.'\meHomeAts to either the f1rej::;, Es,s s, rr::CF ;:: .'.ppeHoill}\ are amcnJmcm" t8 tHis Plall
alld req!lire simllltallc:::: ':::::::::!n::rl.,: ,0 this PlaA arlO te' affeclvL ;un.ot;;;::::1 j:1<;HS,
ChaHges to th: j'!hp;:;::g, cost e"~;ma<<l3, ar.c iJrej8ct jlistifica,;::: -;;]1 be made from time to
time iA :;;:.j;;H~tieH with tt., __u_:a::::::::! ::'TIZD3:;::r:,-llIlC 1:I:3::,e f1rocesses; those chaAges
€llA-b: rr::::!: ,hreligh the BliogetiAg aHo c!ljlit' ;:::;:::':emeAt f1recesse", anJ ,J,,",*
Hecessitate ;:,,'.::;.j;';.:ffit:: ,;; T;:msPIElIl er the M::t-::;o0li-'.:::'. :'lh.... ~ecallse tl::: rtit~~
Faeilities rlz:: :eehnieal Rel"z=-, :s ;; l:;;:kgrellAO eeelimeAt ;;,.c ::11 j::J.;I;e f10liey aspeets are
iHeel"florateo direct!} ;;-1.:: ,he Metrcj:::li'.:::: PIp;:;, :1:;;::;:: ,;; tl:: Pti::E: [aeilities Plall
+eeffi;;:;,,! ~::fc;1 ::aH oeelir at a later time duriHg seHli annual ameAamellt aHd updatc
f1reee3ses. (Metro Plan, page III-G-I)
y. Public Facilitie_s and Services Element
This Public _facilities and SerYices Elemeniorovides directiQnJor the future omvjsion of
,\!rban facilities and services to nlanned land uses within the Plan boundarv.
Ihe availahility ofnllhlic facilities and services is a kev factor influenc.inp the loc.atio'l
and densi1Y..Dffu.ture develonment. The~Lic!s investment incllnd schedulinl:! of nublic
facilities and services are a maior means of imolementinl:! the.Metro Plan. As the
oooulation of the EUl:!ene=S.nringfieldarea inJ;reases andJ3nd de'Lelooment oattems
cham!e over time. the de11'1and for mha" services also increases and chanl:!es. These
changes reauire thaLse.rvice oroviders. both oublicand_orivate. olan for the Pro_vision of
services in a coordinated manner. usinl:! con~tenl assumntions and orQiections for
1100ulatiQILanrlland use.
The policies in this element comoliment MeJrD 'Plan Chavter 11,;1.; Fundamental
Princivles and Chaoter II-B: Growth Manaf!ement, Consi~ent with the principle 01
compact urban l!t"owth.prescribed in Chaoter II. the oolicies in this elementcaU for future
urban water and wastewater services to be provided exclusivelv within the urban l:!rowth,
boundary. This policv direction is consistent with_&tatewide Planninl:! Goal 11. "To~olau
and develop a timelv. orderlv and efficient arranl:!ementoLoublic facilities and services to
serve as a framew.nrkfor urban and_rurlll develooment." On urbanJands. new
development must be served bv at least the minimum level of kev urban services at the;.
time_develoDment is complete_d_3D_d. ultimatelv.bv_a_fulLraUl:!e ofkev urb!iij s,ejyiceS),~qn.,... h'e d
r-<"'tAl_'t-,,1 ~ ~~,' . I -i~,
,Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY () 64~008
Planner: BJ
rural lands within the Plan boundarY. 'develooment must be served bv nlrallevels of
service._Usel"S offacilitieii and service~in rural areas_are soread ouu.>eoQranhicallv,
resultinQ in a higher oer-user cost for some services and. often. in an inadequate revenue
base to_S\.lDoort a higherJtlfdofservicejn theJuture. Some urban..facilities_mavb~
located_or managed outside the urban growth.boundary as allowed.by state law. buConlv
to servedevelooment within the urban growth boundarx,.
Urban_facilities and serYices within_the urban growtl1 hmmdarv are DrQYided bv the CitY-
of Eugene. the City of So ring field. Lane County, Eugene Water & Electric Boarc!
!EWEBt the Soringfteld-'ltilitv BOaLd (SUB). the Metrooolitan WastewateI
Management Commission (MWMC). electriC coooeratives, and soecial service_districts.
SoeciaLserVic.e districts.J1[Qvide school~Land bus selYice~and. in some_areaS outside the
j;jties, they orovide water, electric.fires_e_rvice._or parks and_recreation service This
element provides guidclines for stl~cial service_districts in line witb_the.comoact urban
developmenLfundamental princiole oftb.e MetrQPlan.
This element incoroorates the_~oals. findings. and ooliciesjo_tbe EUf!ene-SorinJdieid
W-elroDolitan An;a Publje Facilities and Sery~Plan (Public Eacilities and Services
FlanJ. adopted as a refinement to the M('lro Plan. The Puhlic Facilities and Services
_m__ _
Plan oro'Lides QuidanceJoLoublic facilities and servi~e_s~including: -plannedwate.r,
wastewater.stQrmwater. andeJe~trical faciljtiesc As reQuired_b,,--Qoall 1. the Public
Facilities and Services Plan identifies and shows the general locationl of the wat~
wastewatet__and stQrmwateCDro~cts needed to serve land within the urban g:rowth
boundarv.' The Public Facilities and S~~icesPlan also co~tains this information for
electrical facilities. althoug:h not reQuired to bv law. The nroiect lists and maos in t~"
Public Facilities and SerYices Plan_are adqpted as.Dart of the Metro Plan. Information in
the Public Facilities and Services_Plan on proiect phasing and costsand.decisions on
timing: and financin!' of nroi-"cts are not nartof the M~tro Plan and are controlled solelv
by_the capitaLimnrovement prolIT!\mming,aod budget processesoLindividual servic"
providers.
This element of the Metro Plan is or!!ariized fw the followin!' tonics related to th~
nrovision of urhan facilities and serviJ;es. Polic,,--direction for the full_range of services,
includin,,--wastewater service. mav be found under any of these tonics_ althoug:h the first
topic.Jkrvices to Develonment Within the llrhan Growth Boundarv. is further broken
down into sub-categories.
. Services to.De.yeJQoment Within the.Urban Growth Bounda)"',!
. Planning: and Coordination
'. Water
. Stormwater
7 The exact location of the projects shown on the Public Facilities and Services Plan planned facilities maps is
determined through local processes, .
8 Goal 11 also requires transportation facilities to be included in public facility plans, In this metropolitan area,
transportation facilities are addressed in Metro Plan Chapter IlI-F and in the Eugene-Springfield Transportation
System Plan (TransPlan), , ' '... R " ,- ;'d
nat~ 'le~18
44 Eugene-Springfield Metropolitan Area Public Facilities and Services~lan ",. ',"
MAY Ii G 2008
Planner: BJ,
~ .......
. Electricitv
. Schools
. Solid Waste
. Services to Areas Outside the Urban Growth Roundarv
. LocatinQ and ManagingJ>ublic Facilities Outside the llrhan Growth Rmmdarv
. Financil1g
The aDDJiclilikJindingS_<lllitDolicieB..llre contaille.d_lmder each tODic heading.'
-- ,
TheJLolicies listed_Drovide dir_ection fOCDUblic and Drivate_develoDmental and nroQram
decision- making regardinQ urban facilities and services. DeveloDment should be,
coordinatCJl with the nlanniTlg, finaocinQ; and_construction ofkev urban facilities-<llld
services to_ensure the efficient use and eXDansion Qf these facilities.
Goals
I. Provide and maintain public facilitie~lItilities and, services, flfld faeilities in anoraerly
lII*I efficient,gnd environmentallv resDQnsible manner~ (Metro Plan, page III-G-4)
2. _Provide oublicJacilities and_services hLa manner that~,ncourages orderlv_and seauential
growth,
Obieeti',es (Metro Plan, page III-G-4, 5)
Consistent with all updated Metro Plan elements in Periodic Review, objectives in the Public
Facilities and Services Element are proposedfor deletion. This approach is being taken to
eliminate redundancy because the objectives are restatements of findings or policies.
I. fl:rni::b glliaelines f=~ ;::.:l:~:~ faeility pr2bti'.:::::::::;; ana aec:sizr: ::::Ling ilia! will reslllt in
lower pllBlie flfla private eJ[p~::3k:.:~_
2. rr:wi;!~ ;:J=Ez :.::ilities, service:, ;;::3 f;;z]::ies to serve e)[istiAg development ;;::3 zlc;:eIy
eoorainate tk::: ':,':1: :be lana llse elements of tbe Cener",: ;:'1.,<<> M",m~ans of eneellFaging
orderly ana sequent:;;! &e',\-:!'-",
~. H::::1He.:. ~~~.a, ~y p~~~ili~.:, .:L:-~~~~..t~'::" tl-..: ;:~3Iems ereat-ed by overlappiflg; serviee areas afld/or
illegieal servicek,u"~
1. Optimize tbe lltilization of exis::::& ::'.ziE:ie!r.
5. Genemlly reallzz ;:J=E:3-ffiI33:=~' :z~ :z]kit:s E:'":3 ~aeilities in new development.
t. Pr:Jvide at least th_ ~u:..:u.....u h~'lel ofIcey ~:-Ea(. :~:s t: '2~1 :.::-l::.:: de-:elopm'::"rtt c.-:k!tffi
tbe metroflolillln area.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rer~ived
MAY 06 2008
Planner: BJ
;, E;;seJ*-f;;: :-..:::.1 fire proteetion disc. ;;}~~ i.i.~ J:::;;3:':3 rand Jleetritieation systems,
diseour-age m(tension or ~"p"no;on of singl~ O~IT;.oe" u,;:;,;~s, or faeilities'to outl)'ing areas.
s. ~~ffle--:~:- .:.::-::inued e~':y'::E-~iOR hen"..:.::: :::;:j:.:-~~.-.J~#Ut:o~-~~, ...,uc~ [13 un;. ersities aRe
L~~t':~~!E, Z.:":3 12.::1 ;:L...n;n5 n5~fleies.
Services to Develonment Within the lJrbln Growth BOllnda,=,,:_~lannin" and
Coordinatio,!
Findin!!s
1. Urban expansion within the urhan QTowth boundary is accom~Jlthroughk. [;11:;;5
witl::;; ::::3 djz.:::::Jt to mcisting development inside the ellff;;;'1. .:.,,:'dH serviee area and ili an '
orderly, llnseatter~~ L~:.:~nin-fill. redevelopment. anda@exation of territorvwhich can
be serve_dwith a minimum level ofke\'.urban serv.iC_e5. This permits new development to
lltili2e ~ existing lltilitiesfacilities and, services ,..-amI-facilities or those which can be
easily extended, minimizing the public cost of premature serviee e)(tensiofl!lxtending urban
facilitie~. (Metro Plan, page I1I-G-2)
The above finding is amended to clarifY the public facilities and services benefits of current
growth management practice in Eugene and Springfield. It addresses only service within the
urban growth boundary, See sections, Services to Areas Outside the Urban Growth Boundarv
'and Locatinrr and Manarrinrr Public Facilities Outside the Urban Growth Boundarv for related
findings and policies. This amendment also deletes reference to urban service area because this
term has the same meaning as urban rrrowth boundary, causing cotifusion.
o
:1-.;; ",;;iJlilation I"rojeetions in tile Ellgene g;::;:.;;field Metrol"olitan ,'\rea Waste Treatment
Management ^ Iterr.-':"-- n___~ nlW nr--:"';Q_n PI--) __~~,,_,"_17 n/:,L 'hose fer the
. ,.. ....t_..__lt_r.;:.,.._~" .,;;..........n;,.... _u .k.'~"i'.c..,;.",:..._. .-...-:1.;. .
metropolit!lR area. (Metro Plan, page II1-G-2)
Ie,.
[;t:rte law reqllires develol"ment of a Pllslie Paeilitie: PI:::: :0 eoordinat~ ;mF';cmentation of
planned wat~r, :::::1:::::; sewer, s1;;= :~: ::::3 ::_..opo,"",,;on projcilEr. (Metro Plan, page
1lI-G-4)
2.
In accordance with Statewide Planning Goal 11 and Oregon Administrative Rules in
khaoter 660. the EUf!ene~SlJxingfield Metl"QlJolitan Area Public Facilities and Sel"JlFes Plan
(PublicFacilities and Seryims..Plan) identitiesiurisdictional resoonsihiUtv for the
orovision of water. wastewater,_and stormwater.;;.deS,cribes resoective service areas and
s:xi,stinl! and olanned water....wastewater. aod,.stormwater facilities;: and contains olanned
facilities mallS, for these services. Electric svsteminfQrmatiQn...and imorovements are
inc1uds:d in the Public Fadlities and Services, Plan. although not reauired bv state law.
LocaLfadlity master plans and refinement plans,oroviae more sQecific oroiect information.
46
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rec~ived
MAY 06 2008
Planner: BJ
The above new finding provides reference to the proposed refinement plan (the Eugene"
Springfield Metropolitan Area Public Facilities and Services Plan) including the addition of
electric facilities to that plan, and clarifies that there are a number of local facility plans and
refinement plans that should be referenced for more specific information.
J,;!, Urban services within the mettOl1olitan urban growth boyndarv are provided te-tfte
metr::F~::an area by the CilY_rrlEugene, the City of Springfield, Lane County, Eugene
Water & Electric 13oard_(EWEB)' Snringfield_Utilitv BoardJSUBt the Metrqpolitan
Wastewater Management Commission (MWMC). el~ctric cooperatives. and special service
. distd_us. Jllllllie ElfIa E]lIa:: j:;J.;Ez :.::ffitie:, ^F::::C~ :Jr'liee aistrie:s, ::::~ 3:; j::irt. ::qeflltive
ag;Feemel1ts, (Metro Plan, page IIl-G-2)
The above finding amendment clarifies the range of service"providers.
1, PJrtiol1s oftlle lIrllafl ar::: l::zJi e~rtain Ie:; :':l3:::: :ervices. (Metro Plan, page IIl-G-2)
f. T:.le east of proyidiflg even basic l::.ey serdee:, ::::!Hiti~= ::.z:!it:::: ~:: -e-::':2::7~b ==....fUtHre
6e\':I:j:~.1eRt ill tile met:;::E:a1l area is sigl1ifieElflt. (Metro Plan, page II1-G-3)
4. The Public Facilities and Services Plan finds thaLalmost all areas_within the citv.Jimits of
PUgen~ and Soringf",ld are served oLcan~rved in the...shQrt-term (0,5_ =s.) with
water-wastewater, stormwaJer, and ekctric service. Exceotions to this are stmmwater
service to...nortions of the Willow Creek ar,eaao_d..s.QutheasCSnringfield andJull wat~
~ervice at some higher elevations in Eugene's south hiLls. Service to thes.e areas will be
i1vailable in the 10ng-term._Service to all areas within city limits are either in a caojtaj
imorovement olan or can be extended with develooment.
5. With the improvements specified in the Public Facilities and Servicesj'lan project lists. all
urbanizabJe ar~as within the Bugene~ringfieJ..dJJrban growth_b..oundarv can be_s_erverl with
}Vater. wastewater- stormwat<;r. and electric ser_vice at the time those areas are develo~.
In general. areas outside citv limits serviceahle in thl;,lcIn,,-terruare located near the urban
growth boundarv and in urban reserves, primarilv in River Road/Santa Clara, west
pugene'LW"iJlow Creekcare~ south SDringfieldLand the ThurstOlLand Jasoer-NattolV!JeM
in east Soringfield.
The above new findings update and provide specific itiformation about service availability in the
urban growth boundary as discussed in the Public Facilities and Services Plan.
6._0AR 660-011.=-OD5 defines oroiects that must be included iooubJic...facilitv olan oroiecLlis~
for water, wastewater. and stormwater, These definitions are shown in the kevs of Planned
Facilities Ma~ 1.,2. and 3 in thisJ'ublic Facilities...and Services Plan.
7. In accordance with ORS J 95..020-080, EU2:ene, Sorin2:fieldLLane County, and soecial
servicecdistricts are reauired to enter into coordination a2:reeme.nts that define how olanninJ,i
co_ordination and urban services (water. wastewater. fire. oarks. ooen soace and recreation.
and streets. roa\ls...and massJmnsitt will be....nrovided within theurban_2:rowth bounda[\f,
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Reco,ived
, 47
MAY 06 2008
Planner: BJ
The above m:'w findings clarify current state law related to the need for changes to the Public
Facilities and Services Plan and coordination agreements,
.B.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 flrBslems needs. (Metro Plan, page III-G-3)
.2:;. In a fe\', ;.,:.~,-,~~s there is El';=~I;:j: ;:: j:J.;E~ ser','iees, lItilities, ana faeilit;=:., ;:;- :Jl;:sieal
DUDlication of service!! sElllnaaries, that prevents the most economical distribution of
public facilities and thElse lItilities, service:., a;-.c ;aeilities. (Metro Plan, page II1-G-2)
The above amendments are proposed for clarification only.
10. As discussed in the1ublic Facilities and Services Plan. a maiori1Ys>fNQdaLDevelooment '
Areas DrODOSed in.Transl'lalLa[e.ser\'iceableno.w.oLin the shorH!:rm. The.CilY..o(
El!gene's adoDted Growth ManagemenLPolicv iL15 states: "Target Dublidy,financeg
,infrastructure extensions to SUOOOrt develoomenLforhigher densities. in-filLmixed use~
and,JJodal deveIQDI!leJJt."
The above new finding states the status of service availability to the nodal areas proposed in
TransPlan, as well as relevant growth management policy of the City of Eugene,
Policies
C. I:: ;:jditien to ph)'sieal, eeenemie, energy, BAa se~;"l ~on';';<lnt.:2::E, L..:.." _..ll=~
&H.rb"n ';,welepment \'.;i;";n m<ltf,:,p":;t:..-. .lrea shall t: b:;:j ::j::Jn the el.:::-:::: :F
;mm;n".t availability 2f a rr.;::;:::;Jm level efkey ;.;L.. ~erviees. (Metro Plan, page II1-G-
2)
G.l +. Extend tkminjmumJevelandfull range ofkev urbanJacjljties..and_service=f;:=:J;:y--d
flrElgt'llm 13:;:7:::;::;; ;7: t~.: ;-;.:t'oflolitan arL" s:""~: u,J the Geneml rk..1 "" .:. :Oasis fElr
decisions to ensllre tliat tile neeas of t:= ...etrElflEllilan area are met in an orderly and
efficient manner consistent with the Qrowth manaQement oolicies in Chanter 11-11
relevant Dolicies in this Chaoter. aq9 other,Metro Plan oolicies. (Metro Plan. page III-G-
6)
The above policy amendments clarify that the extension of public facilities and services must be
consistent with Metro Plan policies and note the particular importance' of growth management
policies and the policies in this element. See Proposed Metro Plan Glossary amendments for the
definition of the minimum level andjUll range of key urban facilities and services.
48
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan Date Rec~ived
MAY 06 2008
Planner: BJ
G.2+8. Use +!he water, "~u:_-J and sturm oc.....er-Planned Facilities Maps of the Public Facilities
and Service~Plan=seetioA.s of the- ~ietrvpCl~;UtnFtttt~;c> ;:'u.:..:E~,;..:,,j' :'L:.~::'J;-'..:J~ ':'~r'le as the
basis for guidiRg to guide the general location of water , sanitary wastewater"llR6
stormwatersewer-...and ele.c_trical Droi~cts 5ml3f()\,emeflts in the metropolitanregioo area.
lJse local faciliJ:v master Dlan,-. refinement_Dlans. and_ordinances asJhe guide for detailed
Jlli!,nning andJ2[niect imDlementatiQD. (Metro Plan, page III-G-7) ,
The above policy amendment clarifies that the Public Facilities and Services Plan maps guide
the j'enaallocation of planned facilities and that local plans and ordinances are used to
determine the exact location of these projects,
G.3 +9.Modifications and_aAdditions to or deletions from the project lists in the]ublic Facilili~
alld~rvicesP.lan for waterLwastewat~r. and-.SIDrrnwaterD.J.!blic facili1YJ:lroiects or
significant change~ to project location from_that described in the J>ubJic Facilities am:!
ServicclLPlalJ maDsJ.2~anj:L1, requires amending the Public Facilities and Services
Plan, exceot fortbe following,; ,
D Modifications to adJu~ic fa<;ilit\'J2rniect which are minor innature and donot
~nificantlv imDact the nroiect's~neral descriDtion. location. sizingLcaDacilY. or
othergeneral ChataJ::j~ristic_of tb,alrokcJ;;_Q[
;/) Technical and~J1vironmental modifications to a Dublic facility which are mad!;;
DurSuant to finaLencineering_on a DmieJ::(; or
3) Modifications to ,aoublic facility Droiect which are_made Dursuant to findings of
an"E:!1yirQnrnentaIAssessrnent or EnyirCJnrnental ImRll<;t~tatern,(;l!1J"cQnduct(;l<!
under regulations imolementing the_oroceduraLorovisions of the National
EnvironmentaU'Qlic'v AcLQf I 969_or anv federaLor State of Oregon agencv
prokct develQDment regulations consistent with that act and its regulations.
G.4 M.The cities and LaneJ:S>l]!ID:};l3eeial ageReies andshaU coordinate_with EWER.--."UR. an\!
~eciaL~ervice districts operating in the metropolitan area,flfl3 ~;:r:n;;fi~l;l, EHgeRe, ane
LaRe COHllt.l :I:::I~- to provide ORe aRotHer the opportunity to review and comment on
proposed public facilities, plans, programs, and public improvement projects or changes
thereto that may affect one another's area of responsibility. (Metro Plan, page II1-G-6)
The above policy amendment is intended to improve the clarity of this policy callingfor
intergovernmental coordination.
G.5 9.
The cities_sh;lll continue jointnlannin" coordination with mMajor institutions, such as
universities and hospitals,shalleOAtiRHe joint jOli::-:r.;::;; eoordiRatioR witH loeal plaRRiRg
ageReies.~due to their relativelv large imDact on local facilities and services. (Metro Plan,
page II1-G-6)
The above policy amendment recognizes the importance of coordination with major institutions
due to their relatively large impact on public facilities and services.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rec~ived
49
MAY 0 6 2008
Planner.:;;J3J
G.6~.
Efforts shall be made to reduce the nuinber 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 wit:'Gp'-:"5fiele ane Eligene_the affected_jurisdictions. (Metro Plan, page
,
III-G-5) .
, I
The above policy amendment clarifies that coordination should occur with the city or county
affected by the boundary change,
R. Ecollillge the lise of water treatment, s~Ej '.-::lSt~, &1: 3~wage dispesal systems that are '
energy efficient and el~.;cocu-,-,o,,;,.:l) sound. (Metro Plan, page II1-G"6)
The above policy is proposedfor deletion because it is too general and restates proposed Goall.
Q.7 Service proY:iders shalLc,Qordinate the lJrovision of facilities and services to areas tar2eted
bv the cities fochicller densities,jnfill.J]Jixed_u~~and no_d.aLdevel"-~l11ent.
The above new policy provides direction for the provision of facilities and services to these key
areas for development, consistent with the recently adopted Metropolitan Residential Land and
Housing Study Metro Plan amendments and the proposed TransPlan.
Q.8 The cities and county shall coordinate with_cities sUIToundinl! the met(Qilolitan areaJQ
dey:eJQp a 2rowth mana2ement strategy. This strategy will address regional publicfacilliy,:
needs.
The above policy reflects the interest on the part of the service providers in the metropolitan
area to work with outlying cities to address regional public facility needs, Region 2050, a'
, project now underway, may provide an opportunity !o implement this policy over the next few
years.
Services to Develonment Within the lJrbanGrowth Boundarv: Water
-
Findin".,
11. __ Springfield relies on groundwater for its sole source ofwateL EUl!ene Water & Electric
Board's (EWEB) water SQurce is the McKenzie_River" and EWEBis develoDing
groundwater sources. The identification of proiects on the Public Facilities and Services
Plannlanned facilities maD does_Dot COil fer ri~ts to '" l'rQullclwater source.
The above new finding clarifies the intent of the groundwater facility projects listed on the
Planned Facilities Maps.
50
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Reco.ived
MAY 062008
Planner: BJ
Policies
G.9 M.Eugene and Springfield and their respective utility branches, Eugene Water & Electric
Board and Springfield Utility Board, shall ultirnatelv obe the water ami electrical service
providers within the urban growth boundary. (Metro Plan, page II-B-6)
The above policy amendment moves this policy from Chapter II-B and reflects a change in state
law that prohibits comprehensive plans or public facility plans from conferring a right on a city
to provide electric utility service in or to annexed territory, It also inserts the word ultimatelv to
recognize the service delivery role played by current service providers other than the cities.
G.! 0 Continue to_take oositiye_st=s to oroJect groundwater supplies. The cities. county and
other service_oroviders....shall manageJand use and.t'ublic facilitie_s for !IToundwatero
related benefitSJhrough the imolementation of the S11l"inrmeld DrinkinfT Water Prntectio!i
Plan and_other wellhead nrotectionolans. ManagemenUlractices instituted~nrote<4
groundwater shall be cO_QJdinated among the City of Springfield. City of Eugene. and
Lane County,
The above new policy specifically references the Springfield Drinking Water Protection Plan and
any, subsequent wellhead protection plans that may be adopted. The policy also requires
coordination among local governments due to the fact that wellhead zones of contribution cross
jurisdictional boundaries,
G.! 1 +7. Ensure that IH t:fle y:"m.,;%-ferwater main extensions within the urban growth
boundary, commuHications with fire districts, through the ref-erral process, shall sccur
to em,u,"" ",",,,, c~,~HsioHs include adequate consideration of fire hyerant Heeds flows.
(Metro Plan, page III -G-7)
The above policy amendment is proposed to state the policy objective rather than the
implementation method. An example of how this policy could be implemented is: Communicate
with fire districts to ensure that water main extensions include adequate consideration of fire
flows.
G, 12 H. Springfield Utilitv Board. Eugene Water llfl4& Electric_Board. and Rainbow Water
District the water nroviders that currenll'l control a water~ource.The utilities
fc,'p@~ible for pf8\'isioH aHd eelh'ery 0:':::1::~ ::rmet":;::lit-" area users shall
examine the n'eed for a metropolitan-wide water master program, recognizing that a
metropolitan-wide system will require establishing standards, aswell as coordinated
source and delivery systems. (Metro Plan, page IIl-G-6)
This amendment clarifies current water service providers with an interest in investigating a
metropolitan-wide water master program, There remains agreement among the providers that
the needfor a metropolitan-wide water master program should continue to be examined.
Date Rer()ived
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 51
MAY 06 l008
Planner: 8J
Services to DeveIoomeot Within the Urban Growth Boundarv_:_51tormwakr
,FindiD'.'~
1 2._HistoricaIl.Y~nrmwateuYstems-.in Eu~en" a~d Soringfield were desJgnedorimarilv to
control floods. The 198m-authorization of the federal Ckan Water AcUeauired. foctb"
firsUime. 10caLc_ommunitiesJo reduce_stormwateLDollution within their municioal'storm
drainage svstems._ These reauirements aoolied initiallv to the City of Eugene. an4 '
subseauent amendments to the Act extended these reauirements toth~,City of Soringfield
and Lane Countv,
13. Administration and enforcement ofthe Clean Water Act storm water proyisions occur atthe
state lev_el thr:oughNational Pollutant Dischar~e EliminatioD SvstemJNl'OESinennitting
reauirements. Applicable iurisdictionsare reauired to obtain an NPDES stormwater permit
from the Oreg@ Deoartment ofBnvironmentaLOualitv (DEQ)~and prepare a_water auality
Rilln outlininl! the Best Manag,ementl'ractices_(BMPs) tO~Jaken overaJive-year oermit
oeriQd for reducinl! stormwaler pollutants to "the_ maximum extent practicable':
14. StmInwater auality imorov_ement facilities aremnstefficientand effective atintN~eptin!(
and removin~oollutantsjwhen thev are close to the source of the ooIlutants and treat
relativelY.._small_v_olumes of runoff.
15. The_Clean WateLl3_ct reauires states to assess the auality oftheirsunace waterseverv thre"
vear,,__andto list those waters wIHffilthat do not weet adopted water auality standards_ Th"
,Willamette River and other water bodies haye been listed_as not meeting the gandards far
temoerature and bacteria. This will require the develooment of Total Maximum Dailv
LoadsiIMDLs) for thesel'te:Lffi-.t!ir:ltsconditions. an_d_an allocation_t!1J1!1int and non-point
sources.
The above new findings reflect significant changes infederal stormwater policy and local
knowledge and practice over the past ten years,
16. The Iistinl! of Sorinl! Chinook Salmon as a threatem;d species in thcUnoer Willamette
Riyer reauires the aoplicationofEndimgered Species Act (ESA) provisiollS_to the salmon's
habitat inthe-.McKenzie_and WiIlametteRivers._The decline in the_Chinook Salmon_has
been attributed to such factors as destruction of habitatthrough channelization and
revetment o(rjvecbanks. non::!2oint source.J1ollution. alterations of naturaLhyqrQlffirnh by
jncreased imoervious surfaces in the basinJmd degradation of natural functions ofrioarian
lands due to removal or alteration of ind~ous vegetation._
The above new finding reports on the potential impacts recent ESA rulings may have on ho;"
local stormwater services are provided
52
Eugene-Springfield Metropolitan Area Publk Facilities and Services Plan
Date Rer~j\f9d
MAY 0 G 7008
Planner: f;~,J
11. There are man,>,-advantage_s to keeDiDg channe1~ open incb.!dingLailLminimum...Ratural
piotittration of stormwater oollutants: lITeater ability to attenuate effects of oeak stormwater
j1o_ws:..retention of wetland. habitat.andolleD spaceJunctiQns; and reduced canital costs for
$tormwater facilities.
The above new finding supports policy to retain waterways in an open condition for their
stormwater quality benefits. .
J 8. An increase_in irrlOerviolls surfaces. withoJ.lJ mitigationLresults in higher flows_dw:ing peak
storm events. less'opportunitv for recharging of the aauifer. and a decrease iu_ water aualitx.,
The above new finding supports policy to minimize impervious surface for beniificial stormwater
affects.
19. Storrnwater svstems tendJp be gra\litv-based'svstems that follow theslQpeofthe land
[ath<:r than political boundaries,---'n mal1veas",~. the natural draina~waYs such as_streams
serve,.a~an integraLo_art oLthe storrnwater COny_eyance syste!!1,
20. In general. there are no prolITams for stormwater maintj;nance outside theEJ.!J(ene and
Springfield citvJimits. excelltfurJhe La.ne CQuntyRoadsl'w,gram. State law .limits
~_ounty roadj"unds for stprmwaternroiects..1o those lQca~d within the nllblic right-of-wav.
The above new findings support policies for, and acknowledge, obstacles to a coordinated
approach to prevenlingfilling of natural drainageways within the urban growth boundary.
2]. Filling in designated floodnJaID areas can increas-\, flood elevations above_the elevations
predicted bv FEMA models. because the FEMA models aretypicallv based onlv on the
fxtentpf develm1ment aUhe time the modeling"was conducted and do,ooLtake into_acco.l!nt
the ultimate buildoutof the drainage area. This poses risks to other oTolJerties in Or
adiacenllQ,floodplaio>-and calL change tkhydrogr~of the DY.e.r.
The above new finding supports policy to maintain flood storage capacity in the floodplain, as
practical, and states the impact of development in the floodplain on flood elevations,
Policies
G. 1 3~. JR Elrder to limprove surface and ground-water quality and quantity in the metropolitan
area,ffieal-;;z':::7_-:::::~s shall 6ElRsider ~developing regulations or instituting
programs for stormwater to:
a. Increase public awareness of techniques and practices private individuals can
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;
n te R;jC~h,!C)d
Eugene-Springfield Metropolitan Area Public Facilities and Services PhuUa \::' 53 ;' ,., .
MAY 06 2008
. ~"~ I
Planner ,1::,,\)
c. Regulate site planning for new development and construction to better eeAtrol
araiRage aRa erosioR lIfIa to manage Dre-_and DOSt -construction storm runoff.
incJudin~rosjon. v_elocitv. Dollutant loadinl.!c. and draiD~;
d. Increase storage and retention and natural fi Itration of storm runoff to lower and
delay peak storm flows~andJo settle_out DollutantSDrior to discharll'e into
regulatedwaterwavs;
~ Reauire on-site controlsc9nd de:\'eJmJmentsta.1ldards. aU1Ll!cti~aL to reduce off::
;;ite imoacts from stormwater runoff;
fe. utilize uUse natural and simple mechanical treatment systems to provide
treatment for DotentialJ,y,contaminated runoff waters;
gf. ResHee Reduce street-related water quality and quantity problems;
bg., ffi:fi:m:ze use rReQ:ulate use and reauire containment and/ornretreatment of toxic
substances;aR4 '
ilt: ilnclude~CQntainmenLmeasure.sin site review standard.s..liLminimize the negative
effects of chemical and petroleum spills7; and
I. "Consider imnacts to ,gwund-water auality_in the desil!l1 and location of dr.v wells.
(Metro Plan, page II1-C- 10)
The above policy amendment moves existing Policy 20 from Metro Plan Chapter III-C.
Environmental Resources, to Chapter III-G, and amends the policy to more closely reflect
existing and planned stormwater practices, consistent with federal and state law and local
stormwater policy,
G.14 lmolement chanQ:es to stormwater facilities and mana<rement Dractices to reduce th"
presence ofDollutants reQ:ulated_\mder the_ Clean Water Act and to address the
reauirements_pfthe EndanQ:ered SDecies Act.
The above new policy is proposed to support local stormwater policy and practice to carry out
federal requirements,
G.15 _Consider wellhead,nrotection_areas and surface_water sUPDlies whenJ1lanninl.!c5tormwater
facilities,
The above new policy requires consideration of groundwater and surface water when planning
stormwater facilities,
Date Rec:-iued
54
Eugene-Springfield MetropolitaiJ Area Public Facilities and' Services Plan
MAY 06 2008
Planner: BJ
GJJL Manage_oLenhance waterwavs and ooen stOI1Dwater svstemB.,lo reduce_waJer Qualitv
impactsJrom runof[and to improve storm water convevanctg
I
The above new policy calls for the cities and the county to manage waterways and open
stormwater systems for water quality and stormwater conveyance benefits.
Example implementation measure: Manage or enhance open waterways'through measures that
include, but are not limited to: public utility, drainage, and/or conservation easements, density
transfers, cooperative agreements, planting vegetation, protecting natural features, restoring or
altering stream corridors, and prohibiting filling and piping.
G.17 ]nclude measures in localland_develooment reiwlatious that minimizeJhe amount of
imDJ:rvious surface-.in_oew devel=cntio_a manner thaLreducesstormwater nollution
reduces the negative effects fromjncreases in runoff. andjs comoatible with_Metro Pial'!
policies.
The above new policy calls for the cities to minimize impervious surface in new developmentfor
stormwater benefits. '
G.18 The_cities and Lane_Countv shalLadopt a_strakJI:Y for the uninCOrPorated area~he urban
growth houndarv to: reduce the negative effects of filling in ilQo_dolains and orevent the
tilling of natural drainage channels. exceotas necessarY to ensure public onerations and
maintenance ofthcse channels in_a mannecthat nreservesand/or enhances floo_dwater
conveV<lncecanacitv_and biQIogicaLfunction.
The above new policy calls for the cities and the county 'to coordinate on a strategy to address
stormwater issues in the unincorporated portion of the urban growth boundary,
Q.l<}_ Maintain flood stora"e canacitv within the floodnlain. to the maximum extent nractical.
, throu"h measures thatIDav indud-'Ueducin" imnervious surfacejn the_floodolain and
:iilllicent areas,
The above new policy calls for the cities and the county to maintain flood storage capacity in the
floodplain within the urban growth boundary to the maximum extent practical.
Services to Develonment Within the Urban Growth Boun~E1ectricitv;
FindiDf's,
22. According to local municioal utilities. efficient electrical service is often accomplished
through mutualhack-un_Jtgreements.-.and inter-=-CQnnected s~temS:<lre more efficienUhan
isolated svstems,
The above new finding provides information that supports inter-connected electrical systems,
Eugene-Springfield Metropolitan Area Public Facilities and Services Plf)ate RecR'ived
MAY 06 2008
01......,........... It:) B
Policies
,G.20 The electric serviceoroviders will agree which orovider will serve areas about to be.
annexed_and inform_the cities who the.seDLice orovidecwill be and how the transition_of
services.jfanv. wilLoccur.
The above new policy responds to the need to determine who will provide electricity to areas
where there is more than one potential provider and no intergovernmental agreement in place
, with such a provision.
Services to DeveloDment Within the Urban Growth Boundarv: Schools
Findin..-s
, 23.___0RS ] 95.Ull...reQuires cities and counties to include...J!S_Jl.n element of i!sctheir
comorehensive olans. a school facilitv olan for high growth districts oreoared bv the district
in coooeration_with the citY_Qr county: and for the city or county to initiate the olanning
activity. The law defines hieh grewth districts as those that have an enrollment of over
5.000 students....and an increase in enrollment of six_oercent or more_during the three_most
recent schoQI vears. At oresent. there are no high growth school districts ,in the urban
growthl1Qundarv.
The above new finding summarizes state law that calls for high growth school districts to
prepare a school facility plan in cooperation with the cities and county, for the city or county to
initiate the planning activity, and for the plan to be included as an element of the comprehensive
plan. No plan is required at this time because no school districts in the urban growth boundary
meet the definition of "high growth. "
,24. _ORS J 97 .296( 4){a"Ls...tates that 'when the udmngrowth boundarY is amended_to....nroyid!;,
needed housin'f..."as oart of thisorocess, the amendment shall include sufficient land
reasonablv -necessarY_to accommoda~ the siti!lJi.....ofnew oublic_schillllfacilities, The_neeq
and inclusion of lands for new oublic school facilities shall be a coordinated orocess
l>etween the affected nublic school districts and the local eovernment that hasJhe authority
to aooro.Ye...tb~urban growth,boundarv.~
The above new finding quotes state law that requires coordination with school districts in
amending urban growth boundaries,
w.
Di:: :0 the increase of childbearing persons as a percent efthe told ;::z;::;;l.:t;:;; .:~,j :fte
leveling off frz::: 7. hwnward trend effertility rates, e'/erall metropolitan school
eflffiJJmcsn., n.~ pFOj'e"h 10 ;nL,~ase bot~ in l:~;-;.~ :Jftelal nllmber and in tile rate of
growth threllgh the rest of this ::~/:"~:J'. Hewe'/er, projected schoel e::~zll::::::: increases
',viii not be evenly j;;;:;-;L:ed-nmon'; the three :::;>::-:;:::E:.:;;~:bzl j;3:~;:L. The Eugene
district will probably continlle to decline into the early 1980's befure b:;;;~.::;::;; :z :::3rea5et
Springfield, Bet~el, "d rr:-::lte scheols willlil::IJ- :elle',v tfle e'..:~.:1l :::~tropolitan trend.
(Metro Plan, page 11l-G-2)
Date RE r~ived
56
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 0 6 2008
Planner: BJ
I ~. ";'here are flO sigAi~:;::-,t :::z:-:;:Jes afltieillated iA either ilie s',er"l: ~m-,)llmeflt or worJ( feree
aHA: ~T.i\'~rsity ofOregoA. Ne?{ faeilities are planAed to meet the Aeeds of the various
departu,""" ,,"J mn ~n ~reate additio;..:.l ~;;p;;~ (Metro Plan, ,page II1-G-4)
+~. L;::::-Gu=uuity Cellege plans Ae new faeilit::o:1: t:e maiA eamllus eeyefld those
i:-:zldz= iA t.fie SehoolMaster PlaA. Increased enrollmeAt ',yill be acc~=n.l"ted !h:--eugl1
to"pnn,;n" nrl3h ,"ampu' pcn5'"amT. (Metro Plan, page III-G-4)
25. EnrQllmentnroiections foJ"Jhe five llublic school districts in the metropolitan...area and the
University oLOregon and Lane Comffiunitv College are not consistent. Bethel Schoq!
Pistdct #52 and the I Jniversitv-'lf Oregon eXQect increa-"ies while Sodo2:field and EU2:ene
School Disttic.ts and LCLareexperiendng nearlillat or declinin~enrollments,
pnrolbnent is increasing fastest in the elementary and.high school atten.dance areas near
new develooment,
. .
The above deletions of existingfindings and proposed new finding are intended to update
enrollment trends and projections,
26H. Short-term fluctuatimJ~ school attendance are addressed'through the use of
.!!Adjustme",,~d Ie attendance area boundaries, double shifting, additieAs te eJdsting
faeilities, =use of portable classrooms, and busing. are lleiAg [-wed by metrepolilaR area
5cA001 districts t: ;-r.;:;::rr.:Ze-tA: ~~: ;>f p;~seflt fucilities aRd d:luJ r.~':: ::1::31-
eOflstructiofl. School fundinl! from the stateis based on student enrollment for schoQ!
districtsjo. the State oLQregon'. Thi:Lfunding oattem affects.the_willingness of districts t!l
allow out-of-district transfers and to adiust district boundaries. Adiustrnents in district
boundades mav be feasible where there is no_net loss/gain in student enrollments
between districts. (Metro Plan, page II1-G-3)
The above finding amendment reflects changes in school district policy resultingfrom changes in
how schools are funded.
12.. EL:::~Atary aAd eGlumu":'J' ~:t:;JIs represeAt importaAt features te'residefltial
~., h', 'J" ".1, I' .',.0 ._L l"--'I't"- --.- 'eetlee tt-I'--.L'I"" 'f-' -.--, ..l"
rr~Tfy~-CJOJ.- 00 ...I, u~lti u. ..."'no. VI '='.....t:i"tt""""t1:t..... . ......... _..... . ~_ ., _-_. '..1 _ ....... ......_..... ... ~orm;::i-"ttt"
neigheerfleod m;eds. (Metro Plan, page 1Il~G-2)
-!.~. P.esideAts of eefltral city Aeighborhoods eave identified the preseflce of elemcAlary aAd
enmmun;~rsefle:;1 f;:::lities as importaAt eeAtriButers to the staBility eft!.,,;c ne;,sABerhoees
el :: :fl: 2::11.:-0' of AeigALochna6'<: ;;tl;';,:, ;;;;.nge of fumili:~ ::-.J btlsCAolds, ::::LJ:::ci
families with 5~;",^,: ;;ge ehildren. (Metro Plan. page 1II-G-2)
27~. Creating or retaining small. neighborhood schools reduces the need for busing and
orovides more_Ol1oortunitv for students to walk or bike to school Oualitv_smaller schools
ffiavallow more oarents to- stav in established neighborhoods and to avoid moving.Q.ul1Q
new.subdivisions on the urban frin2:e or to bedroom communities. Ho.weve1"~Q:l"owth
patterns do not always respect school district boundaries. For example, natural cycles of
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan Date RacAived
MAY 0 6 2008
PI::!nnAr: R.!
,.
growth and neighborhood maturation result in uneven geographic growth patterns in the
metropolitan area, causing a disparity between th~ location of some schools and school
children. This results in some fringe area schools exceeding capacity, while some central
city schools are under capacity. (Metro Plan, page HI-G-3)
28. Long--range enrollment forecasts_ds;termine the_need to either build new schools,expand
~xisting facilities, or close existing~ools. Funding restrictions imposed bv state law
and some provisions in local codes mav discourage the retention and redevelonment of
ntighborhoQd schools. Limits imJ)osed~state law onJhe-.1ts~ of bond fun1Js for
QPerations and_maintenance make the construction of new. lower maintenance buildings
I2referahle to remodeling existing_school buildings. In addition..if existiug schooLLVLere
~XDanded, somelichool sites may_not meetcurrent local'parking_an1J other code
reauirements,
The above finding amendments and new finding articulate the quality of life benefits of
neighborhood schools and the trends that work against preserving them.
'29. Combining educational facilities'with local nark_and recreation faciLities Qrovides financial
benefits to the schools while enhancing benefits to thecQmmunitv. The Meadow View
SchooLand_adiacentCit'LDf Eugene_CJlOLmunitv Datk~an example _ouhared facilities.
The above finding speaks to one of the opportunities presented by cooperation between the
school districts and the cities.
Policies
G.::! 1 ++.Thecities shall initiate_a process with school districts within the urban growth boundary
--
fou;oordinating land_use and schQollllanning_acJivities.., The cities and5c_booLdistricts
shall exam, ine the followin" in their coordination efforts:
- .-.. .-
ll. The need for new nublic school facilities and sufficient land to site them;
b._How open enrollment policies affect school location;
c. The impact of school building height and site size on the buildable land supplv~
d. The use of schooJ facilities for non-school activities and appropriate reimbursement
for this use:
e. The impact of buildimumd land use_cod~s on the developmentand redevelo_oment of
school facilities; ,
f---.S\lStems develonment charge adjustments related to neighborhood_s_chilllls: and
&-.J+. The sehBel districts shall address The possibility of adjusting boundaries. when
I2racticaI and when total enrollment will not be affected. where #teJ- j;:, .~;:,: refleet ilie
bounda./ IJePNeeR EugeRe ad S;:~:T.6fiel4-z~ '::~:Fe-a single, otherwise internally
cohesive area is divided into more than one school district. (Metro Plan. page IlI-G-
6)
Date Re('~!ved
58
Eugene-Springfield,Metropolitan Area Public Facilities and Services Plan
MAY 0 6 2008
'Planner: B,J
The above policyamendments are intended to address current school-related issues identified in
the above list and proposed findings,
Example implementation measure: Initiation by the cities of development of an
intergovernmental agreement that defines the planning coordination process.
S. E!fsr:s sl:::ll te made::: ::::it:6ate1\t.::ii,pr.,,: ofrcsiacntial growtH on tHe mY.F3jOdit.:::::::ea's
'scHools, Cities sHall encouFag: : T:" :f i':,'ellin;; l:r::: tY!les ana !lhasing of single family
resiaential construction. School district3 ,hz.1! _~..':nu: ts :net !leak scho:1 :1::la
~,-.nj~:,-.-.dflHIe:::::::j :HrougH a variety of means, thus !l8ssillly r:L::::; '*"fl6St;;:::::::g-tile
nee4-:s~ :::-.-.-;-fl::m:,,::~nt school facilities. (Metro Plan, page III-G-6)
G.22 -W. -Support financial and other efforts to !lro\'iae el::::::-/..1I)' and community sCHools in
central ~;ry "r~Z, in :nler t:: ::::::::~;; ::::3 :::~:-~ase the 1ltl:-::3::-;;m:~s "d ~:::t]it:,'-Bf
tHose areas for resiac;-/.:d F:r:::3C& kee.D neighborhQQd..s.chQols open and to retail!
schools sites in puhlic ownership_[ollowingschool closure. (Metro Plan, page III-G-6)
The above deleted policy and policy amendment are further explained in the following example
implementation measures:
], Encourage the retention ofmainetarts programs in older neighborhood schools,
2. Encourage the use of existing neighborhood school facilities for community use to help
support the retention of these public buildings as neighborhood gathering places,
, especially when reduced enrollment results in temporary closure,
3. Consider purchasing sites of closed schools that are for sale..
4, Encourage a mix of dwelling unit types and phasing of single-family residential
construction.
G.23. SUDDort the retention ofl)niversitv of Oregon and Lane Community College facilities in
centraLcit\'..areas to incre.aSlU:>DPortunities for ouhlic transit and housin!!...and toretain
these schools' attractiveness to students and faculty.
The above new policy supports these higher education facilities in central city areas for their
quality of life benefits.
Services to Develonment Within the Urban Growth Boundarv:
Solid Wast.. '
Findimrs
30. Statewide Planning GoaUJ reauires thaL"To meet currenLandJong-range needs. a
provision for solid waste_disnosal sites.. includirH! sites for inert waste_shall he included in
each olan.':
\,
Date ReCi.:\iVed
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan ' MAY 0692008
Planner: BJ
Policies
G.2~. The Lane County Solid Waste Management Plan. as uodated. shall serve as the guide
focthe location oLsolid waste sites~incl!.lding sites forinert waste~to serv_e-.1he
metroO_Qlitan area, Industries that make significant use of the resources recovered from
, the Glenwood solid waste transfer facility should be encouraged to locate in that
vicinity. (Metro Plan, page 1II-G:6)
12. :\ior to tile eem]3le::3;: ~f<fle..f!e:~! Ph:! ~Idllle, tile LaAe CeliA!)' Belis 'Naste,
Man"6~m~nt Plan sh:n t: revises to retleet tile reqllirem~:-t.: ~: tile Ree)'eliAg
O]3]3ortuAit)' :.z: ::::j :1:;:;:;;e5 ta tile iAv~n;u'"J" af salis waste sOllrees and sites. (Metro
Plan page I1I-G-2)
The above finding' and policy amendments state and meet the requirements of Goal]] for solid
waste sites and recognize updates to the Lane County plan.
Services to Areas Outside the Urban Growth ROllnc!ilQ';
Findim's.
3] +. Providinl!;Wflllfl-key urban services, such as water, to areas ,are provises te areas outside
the ]3rojeeted uf~MJer...iee llreaurban-=-wth bo_undarv, iAerellGeS increases pressure for
urban development in rural areas. aeems, This can encourage oremature develooment
'outside the urban ","owth boundarv at rural densities. increasing the cost Q[Q"ublic facilitie~
and services to all users of the svstem~. (Metro Plan, page I1I-G-3)
The above finding amendments clarifY the rationale for extending urban facilities exclusively
within the urban growth boundary.
32. Land_m:mJication of biosolids. tr.eated wastewater. or cannel"\' waste _on agricultural sites
outside the urban growth boundarv for beneficial reuse of treated wastewater hvoroducts
gj;,nerated withiJl the urban growthhound~ and is more efficient and en"imnmentallv,
peneficial than land filling or other means of disoosal. '
The above new finding explains the rationale for locating the Regional Wastewater Biosolids
Management Facility outside the urban growth boundary. "
33+7. Lane County land use_data show that..Jllitside the urban_growtll boundarv. W;-c.;:: :-~:-:H
areas,-land uses consist of:
I) tlOOse- which are primarily 'intended for resource management; and.
2) tlOOse- where development has occurred and are committed to rural development as
established through the exceptions process soecified in Statewide Planning Goal 2.
(Metro Plan, page I1I-G-2) .,
The above finding supports poli'!)' to plan for rural levels of service outside the urban growth
boundary within the plan boundary. 0 t Rer, ~i\lp.d
a e \ ',' ",,.,
60
Eugene-Springfield Metropolitan Area Publi~ Facilities and Services Plan
MAY 06 2008
,Planner: BJ
Policie~
G,25 ~. Wastewater.Sewer and water service shall not be exteAeee beyeAe nmyided_Qutside_the
urban growth boundary except to the following areas. and.thecitiesmav reauire
consenUQannex agreements_a,-a.mer_e_Quisite to nro'vidin<' these services in anv
--
instance: ,
a. The M;!,-,Lo;A\\'eet Fiele l\ilfl01t <.i.8 Jle RegieAal Waslew2::~ Sl:.:266
MaAagemeAt rE.z:~':-: The_areaoLtbeEugeneAiroort designated Government al1~
Education on the Metro Plan diagram:Jhe Seasonal Industrial Waste Facility: th~
Regional Wastewater Biosolids ManagemenLFacili_tv:_and~~griculturalsites used
for land annlication of biosolids andcannerv bvoroducts. be!~ ;o~~~ic facilities
These sites serv~iee the entire metropolitan area. ,
b. An existing development outside the urban growth boundary when it has been
determined that itposes an immediate threat of public health or safety to the
citizens efthe metreJlel;",n o.,.ell-within the_Eugene,Soringfield urban growth
boundarv that can only be remedied by extension of the service.
In addition, the cities :r.::~' ~eqllire aAAexatiz:: E.S E. ;Jrereqllisite te el[teAeiAg these
service:. :i. :'i.}" inslaAce under orior obligations. water service shalLhe_nmvided to land
within the_dissolved water districts of Hillcrest. College CreJit. BetheLand_Qakwav.
(Metro Plan. page II1-G-5)
The above policy amendments clarifY that water and wastewater service shall not be provided to
new areas outside the urban growth boundary other than the stated the regional facilities,
(;.26 +e Plan forJbe..iQllowing.lbevel~ of services for rural designations outside the urban
growth boundarv_withinthe Metro Plan R(),mdarv:
I
a. Agriculture. Forest Land. Sand and Gravel. and Parks and Ooen Soace. No
minimum level of service is established.
b. Rural Residential. Rural CommerciaL Rural Industrial. and Government am!
Education. On-site sewage disposal, individual water systems, rural level of fire
and police protection, electric and communication service, schools, and
reasonable access to solid waste disposal facility. (Metro Plan. page IIl-G-6,7)
The above policy amendment is intended to ciarifY that the local jurisdictions will planfor a
minimum rural level of service outside the urban growth boundary within the Plan boundary,
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rec~ived
MAY6jJ 6 2008
Planner: BJ
LocatiDl' and ManapIn.l!}'u!1lli:..Facilities Outside the Urban Growth,
Boundaq
FindinfJ~
34,
In accordance with Staiewide Plannine: Goals and administJ:!ltive'rules, urban water.
-",astewateLand stormwater facilities mav heJocated on agricuJturalland_anjj. urban water
. -
and waste-",ater facilities mav beJocated.on forest land_outside the urbane:rowth boundarv
when the_facilities excJusivelv seore land within the urballgrowth boundary. oursuant tQ
Oree:on Administrative Rules (OAR) 660 Divisions 006 and 033.
15.
In_accordance wjth Statewide Plannine: Goals and_administrative rules, water and
- -
wastewater facilities are aU=d in thJ~..Qublic de:ht-oJ-wav of.J1ublic mads and_hill.hwavs.
16,
The_Public Facilities and Services PlmLPlanned Facilities Mapssbow the 10catiQILof some
olanne.d.lillblic facilitil:S outside_the urban_Q:!"owth boundal"\'1LndPlan bo.undarv.
exclusivelv to serve land within the urban e:mwth boundarv. The ultimate construction of
these facilities will reauire close coordination with_and vermitline:.by_Lane County_and
~ble Lcme Countv Rural Com1Jrehensive J1an amendments.
37.
State PlanniQg Goal 5 and OAR_hhO-023-090 reouire state and local iurisdictions tQ
. identifv. and nrotectriQarian corridors.
38.
In_accordance with~AR 660c_0_l3.dLQ90.660-033-013il(2) and 660-033=OJ20, building
Jichools on hie:h value farm land outside the urban growth boundarv is orohibited.
~tatewide PlanniQg..Goals orohibit locatine: school buildine:s on farm odorest land within
three miles outside the urban ,growth boundarv.
The above new findings clarifY state law and local policy related to the location of urban
facilities outside the urban growth boundary and outside the Plan boundary, Refer to the
Planned Facilities Maps in Chapter IIfor the generalfuture location of such facilities.
Policies
Q.27 Consistent with local ree:ulations. locate new urban water. wastewater. and storm water
facilities on farmJand and urban' water and wastewater facilities on forest land outside the
urban growth. boundarv onlv when the faciljties exclusivelv serve land inside the urban
,e:rowth,.boundarv and ther~is no reasonable alternative.
(;,28 Locate urban_water and wastewater facilitiesjnJbeoublic rie:ht-of-wav ofoublic road~
and hie:hwavs outside the urban e:rowth boundarv, as needed to serve land within th~
urban Q:1"o.wih houndarv""
G.29_FaciJityj)LQviders shalL coordinate withLane Cmmty and other localiurisdiction:umd
Q.btaio the necessarv-'COl.!Ojy land use_aOJ2rovals to amend the LancCoulltvRural
'Comorehensive Plan orthe MetmPlan. as needed and_cQ.Diistent with state Jaw," to R ' . d
. . Ualt~ ec./.';)!Ve
62
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
Planner: B~J
aoorooriatelv desil'11ate land for urbaJ! facilities located outside the urban lITowth
boundarv or the Plan bOllndarv"
G3JLThecitie~hall coordinate with Lane County on reso.onsibilitv and_authority to addre_ss
stormy"ater-relate_d issues outside the J>lan boundarv,jncluding outfalls outside the
Soringfield portion_of the urban~lITowth hOllndarv.
Q31
Measu!:<'s to protecLenhance, QLalter ClassF Streams outside the urban growth
- -
llOundarY. within the Plan boundarY shall. at a minimum. be consistent with Lan~
Coun1Y's riparian_standards=,
The above new policies reflect changes in state law related to locating public facilities. They
also provide direction to coordinate with Lane County in locating facilities outside the urban
growth boundary and Plan boundary and in addressing stormwater facility issues in these areas,
Q.~New schools within the ,Plan boundary shall be_built inside the urhao_gfQ_wth boundarY.
The above new policy is consistent ",ith existing state law and Metro Plan growth management
policies.
Financinl!
Findinl!s,
3...2. ORS 197.'ZJ2(2)(e) statesJhat the oroieCUimiilg and financinlUJrovisions of public facility
plans shall not he considered land use decisjons,
The above new finding reflects existing state law on the financing and timing provisions of the
Public Facilities and Services Plan,
40. OR$ 223.2'l7_andJ2RS 223.22!Ulldo noto_ermit the collectionoLlocal systems
development charges (SDCs) for fire and emergencv medical service facilities and schools.
limiting revenue options for these services. past attemnts to chanr>:e the law have heen
!.lDsuccessf.l!l.,
The above new finding notes some of the limitations in state law on the use of SDCs for fUnding
certain public facilities and services,
4l Service oroviders in the metropolitan--'lrea use SDCs to help fund the following facilities:
. SoriO.f':field: stormwater~wastewater. and_transoortation;
. Willamalane Park and_Recreation District: parks:
. Soringfield_Utilitv Board. Rainbow_Water District: water:
. Eugene: stmJDwater. wastewater."oarks. and transportation: and
:! EWEB: water.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rec1ived
MAY 0 ~2008
Planner: B,J
42. Oregon and California timber receipt revenues. a federallv- funded source of county road
funds. ha~declined Q\'er the vear~and their.continued_decline is expected,
43. Regularmaintenance reduce~ng-teon infrastructure CQsts bv_nre~nting the_Q~fQf
freouentreplacementand rehabilitation. _QRS 223.297 to 223.3 1 4 do_not allow use of
SDCs to fimQpJlerations_and maintelJljnce.
The above new findings state the existing use of SDCs by local service providers and key funding
limitations and trends.
44. The assessment rates.oilugene.Springfield.and Lane County are each different. creatinl\
ineauitaW.e financing .of some infrastructure improyements.io.the metropolitan_area.
The above new finding reflects a need for improved coordination on assessment of properties
that cross jurisdictional lines. '
Policies
G.33;W Changes to Public Facilities and Services'plan project phasing schedules or
anticipated costs and fmancing shall be made in accordance with budgeting and
capital improvement program procedures of the affected jurisdiction(s). (Metro Plan,
page I1I-G-7)
;?-h Project l;~:L" _....: f::;;::;~;~,; ~:;3aificatioH: :I: n:t ~~:]Hff.c "m~"dmCflt-ef-tl:: P::tl::
Facilitic:; PIeL Hedifho",;",," :1::::1<1 10: ~:fleete3 ;F.'~2 Pl:tli: Facilitics P~<:c. :1: 1le
nelct regHlarly sCHeclHlea H('laate. (Metro Plan, page III-G-7)
~ BetH timing alia finan:;:;; ;:~z':isiens L< p_~I:" ia-;;;;;e, "ne-f1z: z::;::3~realanallse
aee-:::ZF.:, and tHeref:~z, :<:nnot Be til: E<:S:: ~~"I :.. ,,~coraance wi~ &:;te-ffiw..
(Metro Plan, page III-G"7)
G.344c Service.oroviders will update In tHese >,0"';0'" .)fthe HrBaII service area wHere tfle full
rallge of kCj' ::~t::; SeFVie2" is n3t a':aila3l:, metrop:I;:z.n ,,~~ capital improvement
programming (planning, programming, and budgeting for service extensionl..ffi-aH
ortlerly aHa efficient maAfler) shall be acyele('led and maintain ea. SHcH a ceoreinated
eapi:::! :'-::;:~","emcn;S progr.:.::. l'..:<~: .:.jj~ess geegra('lHic pHasing regularly for those
nQrtions of the urbao.gm..wth boundar\'_ where the fuILrange_o~keY urban services is nQt
available. (Metro Plan, page IlI-G-5)
The above policy amendments clarifY how public facility financing occurs at the localleve/.
G.35 +. Reauire develooment to oav the cost. as determined bv theJacaLiuris9iction.,Q[
extending urban facilitie_SLIn general, tfle amollnt of ;:;t::'::: JU6siay f:~ ;::1.:1:: lflilities,
services, aRa faciliti::, ::;:IH3::;; :zhzzl: ;:; ~.:':: 3:.eIepm~,I., ).".1: be reduced. This
does not preclude subsidy, where a development will fulfill goals and recommendations'
Date Rec~ived
64
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
Planner: BJ
of the Metro Plan ~nd other aonlicable olans determined by the local jurisdiction to be
of particular importance or concern. (Metro Plan, page III-G-5)
The above policy amendment inserts a slightly rephrased version oj the first part of the
Metropolitan Residential Land and Housing Element policy #A,S, Metro Plan, page III-A-6.
G.163. Continue to implement aA system of user charges,JiDCs. and other public fmancing
tools. where appmpriate, to fund onerations. maintenance. and -f;;; ;:;}';~ie ser'iiees,
...:1:.:- ~"'I" " J 1- . I f
tttttttt<.c, ::::_ _am Ihes to eoyer oJleratloR e~,._ _..~ ~,.3 Improvement or rep acement 0
obsolete facilities orS\Lstem expansion shall eOR~::::;: ~: 1:: imJllemeRtea, wAere
lippropr;at&.- (Metro Plan, page IlI-G-5)
G.37 ---.Explore Qtb.er fundinl! mechanisms-'lt the locallivel to finanke_operations_and
maintenaUke..of oublic facilities.
G.J8 SeLwastewateLand stormW.ilter fees at a level commensurate with the level of imoact
on. or USe-'Lf. the waste.water or stmmwaters,ervice.
The above policy amendments and new policies address the need to fund operations and
maintenance and to set fees at a level that is commensurate with the impact on or use of the
systems,
G.39 The cities and Lane County will continue to cQQl20rate in develooin" assessment
practLces for inter-iudsdictionaLDroiectsthat Drovide fOLe.ouitable treatment of
,J)roperties. rel!ardIess'of iurisdictiml.
The above new policy provides direction to continue efforts to resolve equity issues involved in
assessments for inter-jurisdictional projects.
Other Metro Plan Text Amendments
Chapter 1. Introduction
C. Plan Contents
Aonendices
The following information, available at the Lane Council of Governments, was originally
intended to be included as appendices to this Plan, but it was not formatted into
appendices:
Appendix A Public Facility Plan Project Lists and Maps for Water, Storm Sewers,
Sanitary Sewers, and Transportation (These lists and maDS are reDlacedj)x
the proiect lists and Planned Facilities Mapsjn_ChanterII of the EUf!ene-
Sorinweld Metrooolitan Area Public Facilities and SelWices,l'./anl ',_
ualt; n~C?!Ved
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 65
MAY 06 2008
Planner: BJ
Appendix B
List of Refinement and Functional Plans and Map of Refinement Plan
Boundaries ' ,
List of Exceptions arid Maps of Site-Specific Exception Area Boundaries
Auxiliary Maps Showing the Following:
fue-Eire_station locations
5e-Ea y;;::te-site
',electricl ::k:tR~i8HS and ~;;:;-.:;;'.;Jsion lines
ail"j381t Z8nes
HffiaH-l1rb_~growth boundary
Greenway boundary
,s';:.'0v~.:,Schools
paFksparks
Appendix C
Appendix D
The maps in the Lane County Solid Waste Management Plan; as referenced in
recommended Metro Plan Policy # G,24, above, replaces the Solid Waste Sites Auxiliary
Map in Appendix D to the 1987 Metro Plan.
The Electrical Planned Facilities Map and lists in Chapter II of this refinement plan
replace the electrical auxiliary map.
The Airport Zones Map was replaced by maps in the Airport Master Plan, as reflected in
Metro Plan Chapter III-F. Transportation Element, revised through the TransPlan
update process.
Chapter II-B. Growth Management and thE ~r3an fhrviee Area
Policies
]. The urban service area cOHcept I!rowth boundarv and sequential development
shall continue to be implemented as an essential means to achieve compact urban
growth. The plal1HiAg, jlrogra:::::::::e;, ;:::3 fi::::::::::;; f3f provision of all urban
services shall be concentrated inside the-prej::t:a ;;;t;:;-. Jervice area urban
,growth boundarv. ,
The above amendments to the title of this chapter and to policy #1 delete reference to
"urban service area, " a term used in the 1990 Plan. The term was replaced with
"urban growth boundary" when the Metro Plan was acknowledged in I 982, but the
Metro Plan text was not changed. The full set of Metro Plan amendments that
accompany the adopting ordinance for this Public Facilities and Services Plan will make
this change throughout the Metro Plan. Planningfor all urban services may also extend
to urban reserves, and do, according to current Metro Plan policies. For clarity, the
policy is amended to simply state that urban services will be provided within the urban
growth boundary:
,,2~he UaB shalllie_alQlle,Jhe outside edee_oLexistine and planned ri!l'hts-of-wav that
fQffi1 a Dortion of the UGB so that the full right-of-wav is within theIOGB"o Recc hved
' !J1'..lW'-; "",I
66
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
Planner: BJ
The above new policy is intended to clarifY and provide consistent policy direction for,
interpretation of the urban growth boundary relative to rights:of-way, Subsequent
policies will be renumbered. '
2'1-. Land within the urban growth boundary 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 services9 can be provided to the
area in an orderly and efficient manner. +11,,-) __u_:_; "';: 'an;",.) sewers
'",agtewater serviee, 5tc-="atcr serviee, selie wagte maRagemeAt, water
selViee, fire fllla emerg::c::; oeeieal servis::, ;:::Ez:: preteeti:::, :~::,'-wide
parks aAG r-eereatior. ;:;;c6~ams,eleetr:" "'G-n.:\7e;-~z.:::i l:3~ cOfltrols,
eumm~..ieatioA faei]ities, ana ;::::1:1:2 =:h3el5.-:~.i: ;!:Jt~::t "."::a;: basis (iA other
wores, Aot Aee:::::r:':; ..::~tir. "::aIlGAg eistaAee of all 5tuaents served). P;:"re8
sti'eets with aeeq..a,o p,oyision for 5t:::::.:::lter nmoff a::a ;:::a;:striaR tffivel,
meeting applieable leeal policies, are impoftant, pa/tieHJarl:; ::: r.ew
ae.,.":"pmo.itS aRe aleAg eldstiAg streetg heE:':;lj' ;;3:a tj ;:..::eestrians.
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 the Metropolitan Plan. (Metro Plan, page Il-B-4)
10&. A full range of key urban facilities andservices10 shall be provided to urban areas
according to demonstrated need and budgetary priorities. +I!ej" ::::L~
a8diti2:: t: thz mi:::r::lIlll le'/el ef key ..r:O;:.,; :aeilitie: ;:::a :~:=, ::~I::::: ;::::tlie
transit, natural ;;z:, Y.:= JraiAage faeilities, street lighting, libraries, loeal parks,
loeal reereation faeilities aAa serviees, :::::1 Lalth ser/iees. (Metro Plan, page 11-
B-5)
The above policy amendments move the definition of key urban facilities and services
from these policies to the Metro Plan Glossary in order to make it clear the definitions
apply throughout the Metro Plan. See Metro Plan Glossary Amendments, below.
Chapter I1I-E. Environmental Design
2. Natural vegetation, natural water features, and drainageways shall be protected and
retained to the maximum extent practicaJbIe eOAsieeriAg the eeonnm;~, soeial,
efl-Vifunmcn'tal, and enoro)' eOflS_9ucm...,c", ';n t;'c -dcstgr: ::.-:1 :::::3-~:-.;etion of tlfaan
~ .:LpmMHs. Landscaping shall be utilized to enhance those natural features. This
~doeS_D_QLDreclude increasing their conveyance caoacity in an environmentallv
resoonsible manner._{Metro Plan, page IlI-G-2)
9 See Chapter V, Glossal)' section of this chapter for the proposed definition ofkey urban facilities and services,
lD . .
, IbId,,' Date Rec~ived
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan' 67
MAY 0 6 2008
Planner: 8..1
'"
The above policy amendment is proposed to make this policy consistent with proposed
stormwater policies in Metro Plan Chapter IIl-G,
Chapter V. Glossary
The following new definitions and amendments to existing definitions are recommended
for inclusion in alphabetical order in the existing Metro Plan Glossary, The existing
glossary definitions will need to be renumbered to accommodate the new terms.
Best Management Practk~dBMP~):_ManagemenLIlractices or techniaue~used to guid~
design~alld~ constructionof new imorovements to minimize or nrevent adverse
- - ---- ----
~uyironmeutal imoacts.--Dften_organizedas a listf[Om which those_practice.smost suiteg
tQJLSItecific site_can be chosen to halt ocofEset anticioated nrohlems.
Class KStreams (curre},l111!_Class I Streams in,Lane CodeJ-: -"Streams that have_fish
use. including fish use streams that haye domestic water use." as defined in OAR 629c
635.
prinking wateLProtection (so_urce wateLorotection): Imolementing strategies within !l
~rjJ1king water protection area to_minimizeJh~e notential impact of contaminant sources
on the Qualitv_oJwater used_as a drinking water source_b\'JU2!!bJic water svstem.
Exiension oLurban facilities:_~Construction Qf the facilities necessary for future service,
- ,
nrovlslon.
Floodolain~The area adioinin" a river, stream~ or watercoursethat is subiect to 1 OO~vear
flooding, A ] OO-vear flood hasa_Que-percenLchance of occurrin~in anv one vear as a
resultof periods of higher-than-normal rainfalLor streamflows. high winds. raoid
~nowmelt. naturaLstream blocka~ tsunam_is...illcombinations_thereof.
F\QQdwa'h The nQrmal stream channel and that adioining area oLthelLoodolain needed
1.0 convev the waters of a 1 OO-vear flood.
Groundwater: Wat,er that occurs beneath the land surface in the zone( s) of saturatiolk
Imnervio\!s'surface: Surfaces that nrevent water from soakingjnto the ground. Concret~
~halt, and rooftO-.DLare the mQsLcommon_urhanJmoervious surfaces,
,
Date Rec~ived
68
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
Planner: BJ
,
Kev urban facilities and service~
. Minimum level: wWastewater service_ stormwater service. solid waste,
manae:ement. water service. fire and emergencv medical services. police
- ----
protection. city-wide parks and recreation proe:rams. electric servi"", lanrlu~
controJssommunication fadlities. and_oubJic schoQIs on a district-wide bas~s (ill
other words. not necessarilv within walking distance oLall students served).
. Full rane:e: tThe minimum leye1 of kev urban faciJities and services olus_urban
public_transit. natural gas. street lighting. libraries. local narks. local ~creation
facilities....and senic~s. andl1ealth ser_yices.
l'ublic_F ac i I i tV_]>[Qiect~
Public Facilitv Proiect lists andmaos adooted as Dart of the Metro Plan are defined as
foJIDws:
Water: $ource. reservoirs. oumo stations. and mimarv distdbuJion svstems.
I'rirnarv rliSlrilJlItion SVSternSflr"ttfll1srnission lin"sJ2 inchesQIJi!l"gerfor
.sUB and 24 inch",' or lare:er for FWFIl,
Wastewater: _Pumo stations and wastewater lines 24 inches orJan.!er,
Stormwate~Drainage/channel jmD[Qvememsand/or oioinl.'..,wstems,l(iJncJlesDr
lare:er; oroDosed detention Donds: outfalls; water aualitv oroiects; an>!
waterwavs and ooen svstems.
SDecitkoroiects adooted as oarlQf the Metro Plan are described in the Proiect Lists and
their e:enerallocatiQn isid~ntified in the Planned Facilities Mans in ChaDter II of!b.i;
Euzene-Svrimdield Metrovo/itan Area PuNic Facilities.J,md ServicesPlan~
Soecial service_district: AnY unit ()f1ocal e:gvernment. other than a_city. county. an
association of local e:overnments Derforming land use olanning functions under ORS
J~25 authodzed and regula.ted bv statute. or metl"(lIlolitan service_district formed under
ORS Chapter 268. Soecial service districts include but are not limited to the followine::
domestic water district. domestic water as}illciations and_wa.ter coooeratives: irrigation
distdcts;regionaLaiC(lualitv control authodties: rural fire_protection districts:_s_ch_ool
distric_ts: mass transit districts: sanitarv distri9ts: and Dark and recreation districts.
Svstems deyelooment charge (SDC):~reimbursemenLfee. an imorovemencfe_e or a
combination thereof assessed or collecte_d at the timeoLincreased usage of a caoital
imonlyement. con!Jection to the caPital imorovem~nLQJ issuance ofa_develoDment
j)ermit or huildine: nermit
1 Urban facilities: Facilities_cilllDected tOLQUllirt of. a municioal oublic facilitv svstem.
Urban 'Il"owthboundarv: A site-specific line, delineated on a map or by written
description, that separates i-.~ ;;~aje€te<l _i:-':'.-. service area ,;rban and urhanizahle lands
from ruralland~. (Refer t~ ,,'':'?:~;Q O~ PQe;'; 'I 5.)
Date RE:r' ~ived
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
69
Planner: BtJ
!)rhan reserve area: Rural areas located bevond the urban growth boundarv not needed to
satisf'Lurban demands associateJl with th~-.2_0-year plannilllu)opulation~
UrbaH serviee area. eur.~J~: T!:~ ::~tual gee graphic pork:: ::f ~he metroJ'lelitaH ar-eil
designate~ <.c c:r3,,31:::::I <':1:1 in '.Yh:3IHfl: mirlirnum level of key ::r3ar: :acilities aHd
services are available ::: ::::::::n:Ht. (Ref~r~:: p'''l'hie, below)
. ~:L:: :;erviee arec. ::::::~etea: The estimated geegraflhi:: :::t:::::zable area .....it!:::: '::!:i€IHl
full nmge of ::,3"r: s~ ':Jill nee a to be eKteHaed or flfe...iaea to aecsn:::::::late HrbaH
tleve!opmGn;-Hee3S I:ye. z:signatea fHtur~ Fint in ~-im:. It is rrim",ily :I:t::r:in~
pepul:l~:::::, ~w::1 use aHa eeonum;~ p.ojectioHs. Periodiu ndjuJtments to these pruje~;;und
are-n:~::::::::; to reflect ;:':',U~'6;..g eeHaitiol'l: a:::I ::::Jre recent data. (Refer to graphie,
below)
[Delete graphic on page V-5 and references thereto.]
Urban waier and wasteNater service_orovision:~IheohYsical connection to the wateCQ!:
- -
yvastewater svstem.
70
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rec~ived
MAY 0 Ii 2008
Planner: B.J
IV. Public Facilities Needs Analysis
This chapter describes the existing water, wastewater, stormwater, and electrical service areas in
the metropolitan area and presents the analysis that determined the need for the recommended
projects shown in the lists and maps in Chapter II. This analysis also provides the basis for key
Metro Plan findings and policies recommended in Chapter II related to these four types of
services.
The analysis is based on the following considerations:
1, A general assessment of the condition of existing facilities;
2. An analysis of short- and long-term public service availability; and
3. Estimated costs ~nd timing of needed facilities.
Existing Service Areas
The existing service areas for water, wastewater, and stormwater are shown in maps 5, 6, and 7,
respectively. No service area maps are provided for electrical service that is provided within the
urban growth boundary ,except for specific properties and areas already served outside the urban
growth boundary. The future expansion of existing service areas is prohibited by existing and
proposed Metro Plan policies unless the Metro Plan diagram is amended to expand the urban
II '
growth boundary.., '
Maps 5, 6, and 7 show three areas labeled Urban Reserve. These three areas are
designated Urban Reserve in the existing Metro Plan diagram. Existing Metro, Plan
policy requires that facility providers plan public facilities to serve areas designated
Urban Reserve, but prohibit the extension of public facilities to serve land uses in these
areas until they are included in the urban growth boundary and annexed into city limits.12
11 See Chapter II, recommended Metro Plan Policies G-25 and G-26 and recommended Policy #1 Metro Plan
Chapter II-B. Growth Management. In each instance, these recommendations amend existing Metro Plan policies.
as discussed in Chapter m.
12 Urban Reserve
These rural areas are (ocated beyond the urban growth boundary and are not needed to satisfy urban
demands associated with a population of 293,700. These areas have been identified, based on current trends
and policies, as areas for urban development beyond the planning period. Certain public .utilities, services,
and facilities, particularly water, sanitary sewers, and storm sewers, can be provided to areas designated
urban reserve most economically, following extenSion from areas within the l!rban growth boundary, because
of topographic features, Designating these areas at this time will assist in the preparation of capital
improvement programs that extend beyond the planning period of this Plan
Urban levels of public utilities, facilities, and services shall be designed and sized to serve urban reserve
areas; capacity and financing plans shall be calculated to serve urban reserve lands, For purposes of future
planning, urban reserve areas shall be assumed to develop as law density residential at densities used in
preparation of this Plan Urban level se~ices shall not ~e extende~ to urban re~erve areas [5il they are p. ,8'
Eugene-Spnngfield MetropolItan Area PublIc FacIlItIes and ServIces Plan ate R 7P, ived
MAY 0 6 ~008
Planner: B~J
, A Metropolitan Urban Reserve Analysis Study is now underway as one of the work tasks
in the Eugene-Springfield Metro Plan Periodic Review Work Program, As a result of
that study, the elected officials of Eugene, Springfield, and Lane County have directed
the existing urban reserve areas designated on the Metro Plan diagram be removed from
the diagram. At the time those Metro Plan diagram amendments are adopted, any
amendments to this refinement plan or to Metro' Plan policies to reflect updated facility
service needs and projects will be adopted concurrently with the diagram amendments to
remove urban reserves. - ,
Public Facility Systems Condition Assessment
This section assesses the general condition of existing water, wastewater"and stormwater
systems in the metropolitan area, as required by OAR 660-11-020(l)(c).13
Water System Condition Assessment
The following assessment of the condition of water distribution and storage systems is based
on the systems' ability to: I) serve peak hourly demands; 2) supply fire and emergency
needs; and, 3) maintain system pressures within a desirable range during peak hour demand
conditions and reservoir refill conditions.
Eugene Water System Condition Assessment
Eugene Water System Capacity
The existing water distribution system in Eugene will require expansion in order to serve
the land uses designated within the urban growth boundary. In recent years, the service
areas in the Eugene portion of the urban growth boundary have experienced a high
growth rate, and Eugene Water & Electric Board has been connecting between 1,000 and
1,500 new services a year. It is anticipated that by the year 2003, more supply and
treatment capacity will be needed.
Eugene Water Distribution System
The pipe system is adequate with routine replacement underway. The distribution system
is primarily composed of cast and ductile iron pipe. Polyvinyl Chloride Pipe (plastic)
pipe is only used in the two-inch pipe size, and there is some asbestos cement and steel
piping that is currently being replaced as part of an ongoing main replacement program.
Eugene Water Treatment System
The performance of the Eugene Water & Electric Board's (EWEB) Hayden Bridge plant
is considered excellent, based on the quality of existing treated water. The treated water
consistently meets and exceeds the quality standards currently in effect. The primary
process limitation to the capacity of the Hayden Bridge plant is the filtration system.
included within the urban growth boundary throughfuture amendments or updates, (Metro Plan, page II-E-
~ .
13 An electrical systems conditions assessment is not provided and is not required.
Date ReCAived
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
72
MAY 06 2008
Planner: B~J
Plant operation in the current mode of filter rate control has been limiting the clean filter'
maximum capacity at nine million gallons per day (mgd) in the summer when the raw
water is relatively good quality (low turbidity) and six mgd in the winter when the raw
water has higher turbidities.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Re('~ived
MAY -m 6 2008
Planner: BJ
74
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Rf:lt'nhJ.od
t" . ~ril.. . "" 1,,#
MAY 0 6 2008
Planner: BJ
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Eugene Reservoirs
All EWEB distribution reservoirs are covered and maintained in good condition.
Existing service levels are satisfactory for obtaining proper service pressures throughout
the distribution system., Due to geography, there are some isolated areas where water
pressure is not optimal, but meets minimum Oregon Health Division codes and
regulations. '
Springfield Water System Condition Assessment
Springfield Water System Capacity
Together, SUB and Rainbow Water District serve an area of approximately 14,000 acres.
As an annual average, the two systems currently provide 11 mgd of drinking water.
During a peak use period in the summer, the systems have provided over 23 mgd.
The total production capacity of the 33 wells located in the Springfield area is 26.1 mgd.
This capacity provides a modest surplus over the current maXimum day demand of 23.9
mgd. A prudent"economical reserve recognizes that the well pumps are subject to
mechanical failures or water quality problems that temporarily limit their production.
The surplus supply at the wells is less than 10 percent, which is the minimum
recommended by CH2M Hill in the May 1998 draft Springfield Water System Master
Plan. High usage days, called maximum days, have occurred in the recent past, primarily
because of extended periods of hot, dry weather. Existing wells along the Middle Fork of
the Willamette River are now being pumped to capacity.
Springfield Water Distribution System
To prepare the master plan for the distribution system, CH2M Hill modeled the
performance of SUB and Rainbow's piping systems for a variety of conditions.
Generally, the piping system is adequate for current conditions but will need replacement
as demand increases. These conditions include current peak hour and fire supply
conditions. Future modeling for the same types of conditions are sections of pipe in both
North and East SUB system that will require replacement.
Unmetered water losses, in the East and North SUB/Rainbow system are near an
acceptable level and system pressure is adequate. South of Main Street, SUB is lacking a
major east-westsupply line. At present, the areas south of Main Street are all supplied by
individual lines connected to the line on the north side of Main Street, and to a main in
Jasper Road. Circulation in the area will be inadequate in the future and supply reliability
will be less than it would be with a major supply line.
The West SUB system needs improvements. Distribution storage is adequate in terms of
capacity, but this system contains a substantial amount of pipe installed before 1940.
Much of this pipe has oeen replaced. However, an unacceptable water loss from pipe
leakage remains.
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 8]
MAY 06 2008
Planner: B,J
Springfield Water Treatment System
SUB and Rainbow Water District have excellent quality groundwater for their supply;
however, regulations may require further treatment. Due to the excellent water quality,
the sole form of treatment applied at the wells is chlorination, followed by a short
detention period. This level of treatment complies with current rules.
Springfield Reservoirs
The SUB and Rainbow Water District systems currently have eight finished water
reservoirs. Their total volume of 12,7 million gallons is adequate to meet overall system
needs but as demand ,continues to grow, more storage will be needed.
Wastewater System Condition Assessment
Conveyance capacity and inflow and infiltration (III) ratios are important criteria by which to
assess the performance of a wastewater collection system. Conveyance capacity is a function
of adequate pipe sizing and measures a system's ability to move effiuent efficiently. Inflow
and infiltration ratios express the amount of storm water entering a sewer system through
defective pipes and pipe joints, or through the cross connection of stormwater lines,
combined sewers, catch basins, or manhole covers. Such extraneous stormwater entering the
wastewater system unnecessarily burdens both conveyance and treatment facilities. '
Eugene Wastewater System Condition Assessment
Eugene Wastewater Collection System
Table 9 presents an assessment of the general condition of the wastewater collection
system in Eugene for pipes 24 inches and larger. The existing system is generally in
adequate condition, based on wastewater line inspection results and conveyance capacity.
Table 9
Eugene Wastewater Collection System General Condition Assessment
Facility Type
, ,Adequate
Inadequate
Total
24-inches+ Diameter
42 miles
4 miles
46 miles
Source: Eugene Public Works Department, 1998.
Approximately 80 percent of the wastewater system were constructed after 1950. The
oldest pipelines were constructed between] 900 and 1905. The Central Eugene system
contains all of the older pipelines, which may contribute most of the If1 to the Eugene
collection system. A Sewer System Evaluation Survey, 1978, indicated that about 80
percent of total VI was contributed by the Central Eugene system.
The WiIlakenzie system area was annexed to the city in 1960 with a majority of the
wastewater system constructed between 1961 and 1964. A large area northofBeltline,:ll"'O;' led
!.IeAlv I Iv.'. ,1 \f
82
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 2008
Planner: BJ
Road is still not annexed or served by wastewater systems. Major improvements in the
system are occurring in the Willakenzie North Basin north of Beltline Road. Since 1992,
new wastewater line extensions have been installed off Coburg Road and Gilham Road.
A majoritY of the north BethelIDanebo basin area was annexed to the city in ] 964.
Wastewater systems in the area were designed to allow for phased construction as growth
occurs. The 1987 Metro Plan projects that more than 40 percent of the city's growth will
occur in this area. Recent development pressures have intensified in southwest Eugene
and industrial development has consumed much of the remaining capacity in the west
Eugene conveyance system, which was intended to be expanded to meet projected
growth demands. The system consists primarily of the West Irwin and Terry Street pump
stations and the force mains to the regional wastewater treatment plant.
In the River Road/Santa Clara area, existing Metro Plan policies allow wastewater
service to be provided to developed properties without annexation to reduce the negative
impacts of septic systems on groundwater quality. Annexation of vacant land is required
prior to development and the provision of wastewater service in this area and all other
areas outside city limits within the urban growth boundary. Recent conveyance
improvements in the area have occurred in the River Road Basin, including numerous
line extensions along River Road and a series of improvements along Prairie Road in
1997 and 1998.
Eugene Wastewater Pump Stations
The Fillmore station, constructed in 1960 in conjunction with the west Eugene trunk
sewer, was completely renovated to a modern facility in ] 995, and will be capable of
serving the Downtown Wests ide basin well into the future. The Judkins Point pump
station was constructed in 1954 and had a number of problems relating to capacity and
pressure line inadequacies. These problems were addressed in ] 995 through a full
modernization of the facility, and the construction and subsequent flow diversion to the
new Glenwood pump station. Other pump stations in the Central Eugene system serve
small localized areas.
In the Southeast Eugene system area, the Glenwood pump station will serve the greater
Glenwood area and Laurel Hill. In addition to these improvements, a second force main
and temporary pump station are currently being built in the area with private funding.
These facilities have significantly improved capacity for accommodating new
developments.
Springfield Wastewater System Condition Assessment
Table 10 presents an assessment of the general condition of the wastewater collection
system in Springfield for pipes 24 inches and larger. The table shows that Springfield's
wastewater system is generally in good condition. Capacity is adequate in each of the
basins. Inflow and infiltration is a significant problem in the Downtown/South A basin
where older pipe systems allow errant stormwater to enter the wastewater system. Inflow
and infiltration in the Thurston and North Springfield basins are also of.some concern""i\tB, d
!Jt:m; rv' ,". "
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan [VIAl (J ~ 20(88
Planner: BJ
, Table 10
Springfield Wastewater Collection System General Condition Assessment
I Basin
I
ConveyaDl:e
Ca pacity
Adequate I
X I
X
X
X
X
X
IntlowlInfjltration'RiItio* .
Main Street
Thurston
North Springfield
North Branch
I Downtown/South A
I Jasper/Douglas Gardens
Not
Adequate
I
PeaklBase
Flow (MOD)
1.7
4.6
5,1
Unknown
11.2
1.7
Stonn/Base
Flow (MGD)
2.0
3.0
3.6
Unknown
5.7
2.0
* Base Flow is the nonnal volume in millions of gallons per day (MGD).
Peak Flow is the highest rate of flow at a given point in time.
Storm Flow is the volume for averaged across the duration of a stonn event.
The ratios showri in these columns are a measure of: I) pipe condition, 2) crossed
stonn and sanitary sewer connections, and 3) future problem areas.
Peak/Base and Stonn/Base ratios greater than 5.0 indicate system problems,
Storm water System Condition Assessment
Eugene Stormwater System Condition Assessment
Table II is a draft summary of the total number of pipe and open channel segments
recently modeled by the City of Eugene (1998); the number/percentage of segments that
are expected to be deficient under existing and future land use conditions; and the
number/percentage of deficient segments that are expected to fail only as a result of
future development. As shown, the highest percentage of segments expected to flood
under existing and future conditions is in the Willow Creek basin. A relative]y high
number of segments in this category is also shown in the Amazon Creek Basin and
Laurel Hill Basin.
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84
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
fliAr (j,; ?008
Planner: BJ
Ta hie 11
Eugene Storm water System General Condition Assessment
Basin Name
No. of
Segments
Modeled
Segments Expected to be Flooded under Existing and
Future Land Use Conditions
Segments Expected to be Flooded under Future
Land Use Conditions Only
No, of Length of flooded segments % of total No, of Length of flooded % of total
flooded number of flooded segments number of ,
I
segments segments segments segments
Amazon Creek 181 59 173,500 LF pipe segments 33% 12 6,936 LF pipe segments 7%
and 1,550 LF open channel
160 14 3.247 LF pipe segments and 9% 5 1,873 LF pipe segments 3%
BethellDanebo 6,670 LF open channel and 1,360 LF open
channel
162 7' 49 LF pipe segments and 4% 2' 1540 LF open channel 1%
Willakenzie 4,740 LF open channel
Santa Clara and I to be to be to be
River Road determined determined determined
Willamette River I 21 1 700 LF pipe segments 5% 0 N/A 0%
51 39 744 LF pipe segments and 76% 5 179 LF pipe segments 10%
Willow Creek 21,850 LF open channel and 2,688 LF open
segT}lents and one bridge channel
50 22 840 LF pipe segments and 44% 5 493 LF pipe segments 10%
Laurel Hill 2,320 LF open channel and 450 LF open
channel
*The flooding problems caused by high water level in the Willamette River are not included in the table,
=n 0
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"""'l r., n Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 85
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Date Rec~ived
MAY 0 S' 2008
Planner: BJ
r-
Springfield Storm water System Condition Assessment
Table 12 assesses the conveyance capacity at present and at future buildout. Conveyance
capacity is also evaluated for the ability to handle two-year and ten-year storm events.
As the table shows, all basins within the system are capable of draining two-year storm
events. In a ten-year event, the Cedar Creek, Hayden Bridge, Q ,Street Floodway, and
Jasper basins do not function adequately.
Table 12
Springfield Stormwater System General Condition Assessment
",Basin
Con", veyance Capacity
',- '." ,... ".,,- .
" (S~opnF:vents)
2-yr
Event
y
y
y
y
Present
y
y
IO-yr
Event
N
y
2-yr,
Event
y
y
Buildout
Outfall
'Capacity' '
, '(Stprm
EventS)"'"
IO-yr 12-yr
Event Event
N I N
Y I Y
N
Y
Y
N
Y
Y
Y
N
N
Y
Y
N
Y
I
I
I Y
I Y
Y
Outfall: '
Controf':
lO-yr I City
Event
N N
Y Y
Y
N
Y
Y
Y
N
Unk
Y
UG
B
N
Y
Y
Y
Water,Quality:, ,
,"<"; ")--<.0",.:t -7
Pre-
treated
(%)
Knnwn
Water
Quality
Deficiencv'
Cedar Creek I
Weyerhaeuser I
Outfall '
West
Springfield!Q
Street
West
Springfield!
Havden Bridee
I Nnrth I Y
Gatewav
I Q Street I Y
Floodwav
I MillRace i
I Jasper I
I Mountaingate,
Jasper lNatron
West Kelly
Butte!
Willamette
.Outfall capacity is a measure of the receiving body's ability to absorb and convey runoff.
'Outfall control refers to having jurisdictional control (through ownership, easement, or agreement) over a
stonnwater outfall that protects the facility from activity that might impact its capacity. '
'Does not meet one or more water quality standards as defined in DEQ section 303(d) Water Quality Act.
'Multiple outfalls, some of which the city does not control.
Note: Y indicates an adequate condition for a category.
N indicates an inadequate condition for a category.
Y
Y
N .
N
Y
N
N
y
N
N
<10%
<10%
./
I
I
I
N
Y
N
Y
Y
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Y I Y
IYIN' I N
I yfN' I N
y
<10%
Y
y
y
N
20%
50%
<10%
20%
40%
0%
./
y
<10%
,
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY llJ76 2008
Planner: BJ
~.
Table 12 also analyzes the conveyance papacity needed to accommodate two-year and
ten-year events in'the future when anticipated buildout ofthe land has occurred. As can
be seen, several drainage basins are likely to be overwhelmed as buildout occurs.
Outfall capacitY is a measure of a stream or drainageway's ability to absorb stormwater
runoff. Table 12 shows that Cedar Creek and the West Springfield Hayden Bridge basins
are deemed inadequate to absorb even two-year events. The Jasper basin fails in a ten-
year event.
Outfall control refers to having jurisdictional control (through ownership, easement, or
agreement) over a stormwater outfall that protects the facility from activity that might
impact its capacity. Table 12 shows those basins where the city has control and where it
does not have jurisdiction. Cedar Creek and the West Springfield/Hayden Bridge basins
have outfalls outside of the city's control. Other basins have more than one outfall, some
of which a~e outside city control.
Water quality is a critical element of Springfield's condition assessment analysis: Staff
has estimated the percentage of runoff volume that is being pre-treated for each basin.
Where known water quality deficiencies exist, these are shown on Table 10.
Public Service Availability
A second set of considerations in identifying planned projects and setting policy is the ability to
provide water, wastewater, storm water, and electric services within defined service areas in the
short-term and long-term (see Map 8). This section describes the methodology used to identify
these areas and presents findings that articulate service availability status, issues, and constraints.
Findings that directly support proposed Metro Plan policies have been included in the Metro
Plan Text Amendment Recommendations in Chapter II.
Most areas in the'Eugene-Springfield metropolitan area can be served in the short-term, while
larger tracts of urbanizable land available for future development will be serviceable over the
long-term. As defined in Map 8, short-term areas are development-ready sites plus areas that
will or can be provided service within the next five years. The public projects planned for. these
areas are identified as short-term projects in the project lists in Chapter II. Improvements needed
to serve short -term areas are either listed in capital improvement plans or will be made as part of
the development process. Long-term areas are anticipated to receive service in six to 20 years,
due to a variety of constraints, as described in the following sections of this chapter. Public
projects to serve these areas are identified as long-term projects in the project lists in Chapter II.
In addition to short- and long-term, the ability to provide service is discussed below within the
context of areas within city limits, areas identified or designated for in-fill, redevelopment, and
nodal development, urbanizable areas, and, for long-term areas only, areas designated Urban
Reserve. The urbanizable area' is that area between the city limits and the urban growth
boundary .
Date Rec9ived
88
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY 06 20.08
P!anner: BJ
r-
Methodology
In November 1998, utility service questionnaires were completed by service providers to
ascert!!in limitations to providing public facilities to planned land uses within the city limits,
proposed Nodal Development Areas,14 the urban growth boundary, and Urban Reserves. The
data collected from these questionnaires and accompanying maps provide important
information on service constraints in these areas.
Through the utility service questionnaires, city and county public works staff and area utility
planners described the availability and constraints to providing water, wastewater,
storm water, and electric service within urban growth boundary and urban reserve areas.
Areas not currently served were identified in Map 8 as short- or long-term service areas for
each type of service. '
Through this process; service providers described any known constraints to providing service
to proposed nodal development areas. This information is contained in an appendix to the
Eugene-Springfield Metropolitan Area Public Facilities and Services Te'chnical Background
Report: Existing Conditions and Alternatives, April 1999.
Short-Term Service Availability
All areas within the city limits of Eugene and Springfield can be served in the short-term,
except for stormwater service to two areas in both cities and full water service to Eugene's
south hills. Short-term system improvements to serve these areas are either in a capital
improvement plan or will be made inconjunction with the development process.
A majority of the proposed nodal development areas are serviceable now or in the short-term
and most have no known service constraints. In,cases of short-term service availability,
utility providers' five"year capital plans accommodate the needed facilities.
Short-Term Service Availability, Within City Limits'
I. Almost alI.areas within the city limits of Eugene and Springfield are served or can be
served in the short-term (0-5 years) with water, wastewater, stormwater, and electric
service. Exceptions to this are stormwater service to portions ofthe Willow Creek
area and southeast Springfield and full water service at some higher elevations in
Eugene's south hills. Service to these areas,will be available in the long-term.
Service to all areas within city limits is either in a capital improvement plan or can be
,extended with development.
14 TransPlan (The Eugene-Springfield Transportation System Plan) encourages high-density residential,
commercial, and employment centers known as Nodal Development Areas. These potentia) nodes are shown in the
TransPlan map, Nodal Development Areas Proposed/or the Eugene-Springfield Metro Area, con!aj!led in theR . d
appendix of the Public Facilities and Services Plan Technical Background Report. Date eCP,lve
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 0 ~ Z008
Planner: BJ
-
Date, Rec~ived
90 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY 06' 2008
Planner: BJ
"1J
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Map8
Eugene-Springfield Public Facilities'and Services Plan
Public Service Availability in the Eugene-Springfield Metropolitan Area'
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Areas within west Eugene's industrial district have limited short-term water system capacity due
to disconnected pipes in the system. Additional water main extensions will be required for some
properties, and wetland constraints may pose a problem for certain water mains to be connected.
2. The area north of Roosevelt, south of Barger, and west of Terry street in Eugene is
developing rapidly, and with the recent completion of the Barger/Green Hill pump
station, can be provided ~ith gravity wasiewater service.
3. Since the] 980s, the cities of Eugene and Springfield have recognized that open
drainage systems can reduce overall infrastructure costs, conserve natural resources,
and provide storm water treatment and conveyance. Through adoption and
implementation of the Eugene Comprehensive Stormwater Management Plan (1993),
Eugene has developed the policy framework that will lead to specific projects
identified through master basin plans. Eugene's stormwater planning meets federal
Clean Water Act requirements and will accommodate anticipated development within
Eugene's portion of the urban growth boundary. Springfield and Lane County will be
subject to the Clean Water Act's National Pollutant Discharge Elimination System
(NPDES) Phase II permit requirements. The City of Springfield is undertaking a
major storm water planning effort.
4. All areas within Eugene and Springfield can be provided electric service, but new
facilities will be required to support substantial long-term growth and in areas that are
currently reaching capacity within city limits. EWEB ana SUB five-year capital
plans provide for these new facilities.
Short-Term Service Availability to Infill, Redevelopment, and Nodal
Development Areas
I. Current capacity is adequate to serve all infill, redevelopment and Nodal
Development Areas.
2. A majority of Nodal Development Areas are serviceable now or in the short-term.
Thirty-four of the 53 proposed Nodal Development Areas have no known service
constraints.
3. A more thorough analysis is needed to determine water availability for fire flow to
individual sites within Nodal Development Areas. Fire flow is site specific and all
nodes have capability of adequate fire flow, but some sites within the nodes will
require more infrastructure upgrades than others.
4. In order to identify areas suitable for development at higher densities, the City of
Eugene is developing a software model that will better determine wastewater flows
within the wastewater collection system.
Date RecAived
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY 0 ~ 2008
Planner: BJ
Short-Term Service Availability Within Urbanizable Areas
1. Water, wastewater, stormwater, and electrical services to urbanizable areas in the
Eugene-Springfield urban growth boundary are available upon annexation to the city,
with the exception of areas where some s,ervices are available in the long-term.
2. Water service is not available in the short-term to the area east of Highway 99 and
south of Awbrey Lane in Eugene because of limited water system capacity and a lack
of existing infrastructure. Main transmission lines to service these areas will be
constructed at cost to development.
3. Lane County regulates the installation of septic systems in the urbanizable area
through an intergovemmental agreement with the State of Oregon.
4. The construction of wastewater interceptors has been completed in the River
Road/Santa Clara area, and Lane County no longer issues septic permits in this area.
The City of Eugene is requiring all existing development in the River Road/Santa
Clara area to connect to the wastewater system and requires all new development to
annex to the City of Eugene and connect to the wastewater system when that system
is available.
'Long-Term Service Availability
Areas with service constraints are located on the periphery of developed lands and within
urbanizable areas. These long-term service areas are located primarily in west Eugene's
Willow Creek basin, in south Springfield, and the Thurston and Jasper-Natron areas of east
Springfield. There are a few instances where areas with service constraints are located
within city limits (Eugene and Springfield: stormwater; Eugene: water).
Service constraints for water, wastewater, stormwater, and electrical facilities exist in one or
more areas, although some areas are constrained for some of these services and not others.
Short-term service constraints can largely be attributed to environmental constraints, such as
steep slopes and wetlands, and limited service capacity due to a lack of existing
infrastructure, or to the need for major infrastructure improvements that will enable the
provision of service to areas currently located far from existing facilities. Such
improvements include the construction of new water sources and transmission lines, large
wastewater trunk lines and pump stations, and enhancement of stormwater pipes and flood
control facilities. )
Long-Term Service Availability within City Limits
Vacant lands in west Eugene identified as wetlands and targeted for mitigation or
protection through acquisition will not be serviced due to environmental constraints.
Date Rer'pived
94
Eugene-Springfield Metropolitai1 Area Public Facilities and Services Plan MAY 06 2008
P lann~t' Q J
' ~...Ii r.1 :t...,Jt
,
,
Water
1. Areas in need of water service in Eugene's south hills, within the city limits, will be
serviceable in the long-term due to the need for significant investments in additional
water distribution infmstructure and storage capacity.,
2. Buildable lands located in the Timberline area of Eugene's south hills will be difficult
to service with water until the Timberline (1100) reservoir is constructed. This area
can be served but,will require a combination of private and EWEB resources forthe
area to develop at buildout.
3. In the Laurel Hill area of Eugene, the Fairmountreservoir has limited water service
capacity and is currently serving an area larger than its capacity. Significant future
development in this area will require a new reservoir above 850 feet elevation, and a
new pump station above 750 feet elevation. There are also limited fire flows in the
Laurel Hill area.
4. Development above the 875 foot elevation in the Dillard Road area of southeast
Eugene will require additional water pumping facilities to address long-term service
needs. This area can be served, but will require a combination of private and EWEB
resources for the area to fully develop at buildout. Water reliability will be difficult
in this area until new,facilities are constructed. EWEB has planned for the long-term
construction of a water reservoir and'pumping station in this area.
Wastewater
]. In Eugene's Willow Creek basin, the addition of the Hyundai plant may contribute to
future wastewater capacity problems with additional flow contribution from future
phases. Currently, the existing large Hyundai flow rate is offset by the amount of
land,taken out of development for protection of the west Eugene wetlands. Due to the
high flow rate producer in this basin coupled with a high infiltration and inflow rate
during heavy rainfall events, excess capacity may be limited for the future
development of higher density land uses.
2. The cities of Eugene and Springfield are funding infiltration and inflow reduction
programs to improve existing wastewater capacity limitations within certain
wastewater basins.
Stormwater
I. Upstream areas of the Willow Creek basin are serviceable with stormwater facilities
in the long-term because they are significantly removed from downstream facilities.
2. Areas in southeast Springfield within the city limits are identified as long-term
service areas for stormwater because the existing capacity of the storm water system
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY 356 2008
Planner: BJ
--
in this area is limited and the City does not have jurisdictional control of outfall
locations outside the urban growth boundary.
'Long-Term Service Availability to Infill, Redevelopment, and Nodal
Development Areas
1. Five Nodal Development Areas are affected by service constraints': in Eugene, nodes
3B and 3C; in Springfield, nodes 9H, 9J, and 9K. Only the Willow Creek Industrial
node (3C) is located inside city limits.
2. Developable lands located near the West 11 th and Crow Road node (3B) will be
difficult to serve water because of a lack of adjacent infrastructure available at this
time.
3. The Jasper Residential and Employment nodes (9H and 9J) are affected by short-term
service constraints for wastewater service.
Long-Term Service Availability Within Urbanizable Areas
All urbanizable areas within the Eugene-Springfield metropolitan urban growth boundary
can be served with water, wastewater, stormwater, and electric service at buildout.. ln
general, areas outside city limits serviceable in the long-term are located near the urban
growth boundary and in urban reserves, primarily in River Road/Santa Clara, west
Eugene's Willow Creek area, south Springfield, and the Thurston and Jasper-Natron
areas in east Springfield.
Water
I. The existing water distribution system in Eugene (EWEB) will require expansion in
order to serve the land uses designated within the UGB.
2. Future growth will require additional source, storage, and transmission throughout the
Springfield Utility Board's (SUB) water service area to increase capacity and meet
water demands in Springfield.
3. Existing SUB wells along the Middle Fork of the WiIlamette River are currently
being pumped to capacity.
4. In Springfield, buildable lands south of Thurston and in the Jasper-Natron areas will
be difficult to serve with water_ Significant costs will be incurred to develop new
water sources and transmission lines in these areas.
5. Upper ltlvel water service in the WiIlamette Heights area in Springfield will require
pump stations and storage reservoirs. These facilities can be provided over the long-
term but will be costly to develop:
Date Rec~ived
96
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06 20lIl
Planner: BJ
6. Buildable lands in the Fox Hollow/Owl Road area of Eugene will require additional
infrastructure and water storage capacity prior to being served. Most of this area is
currently disconnected from the existing system.
Wastewater
1. There are no areas within the metropolitan UGB that will be difficult to serve with
wastewater facilities over the long-term (six to 20 years); however, expansion of the
existing collection system will be necessary to meet demands ,of growth over this time
period. .
2. The Eugene-Springfield metropolitan area Regional Wastewater Treatment Plant has
sufficient design capacity to accommodate population increases and serve all new
,development at buildout. However, peak wet weather conditions limit the treatment
plant from achieving its designed capacity. Wet, weather-related improvements are
needed at the plant and within the regional collection system to extend the plant's wet
weather capacity beyond the year 2007.
3. The provision of long-term wastewater service in the Jasper-Natron area in
Springfield is contingent upon construction of the Jasper Road Wastewater Line
Extension from 42nd Street to Brand Street. Completion of this significant
infrastructure improvement will enable this area to be served effectively.
4. The WiIlamette Heights area of Springfield requires installation of wastewater lines
to replace existing septic systems. There are related problems in this area
surrounding substandard streets and inadequately surveyed rights-of-way.
Stormwater
1. Through hydrologic modeling efforts, the City of Eugene has determined that over
142 stormwater facilities (pipe segments or open channels/waterways) are expected to
flood under existing and future land use conditions. At least 29 stormwater facilities
are expected to flood as a result of development under future land use conditions
only. .
2. Four stormwater basins in Springfield (Cedar Creek, West Springfield/Hayden
Bridge, Jasper, and Mountaingate/Jasper-Natron), will not function adequately in
future storm events. An analysis of two-year and ten-year storm events anticipates
that these stormwater basins will likely be overwhelmed as buildout occurs.
Inadequacies in stormwater capacitY will have to be addressed to service long-term
development needs in these basins.
3. The City of Springfield lacks control of key stormwater outfall facilities located along
Cedar Creek and areas outside of Springfield's jurisdictional boundaries within five
stormwater basins. Control of outfall locations affects the ability to protect these
facilities from activities that might impact their future capacity.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAt,q-.
Planner: a",i
""' -~
4. Eugene's River Road/Santa Clara basin has limited long-term stormwater capacity,
existing deficiencies, and high cost for development of new facilities.'
Electrical
All areas in the Eugene-Springfield metropolitan area can be provided electrical service
over the long-term (next 20 years or at buildout). There are few areas where some level
of electric service does not already exist and the ability to extend the service is not readily
available.
Long-Term Service Areas Within Urban Reserves
If it were necessary, land within the metropolitan area's three Urban Reserves would be
serviceable in the long-term but would require major improvement projects and
significant financial resources to ensure services are extended into these areas.
Water
L Water service is difficult to provide to Eugene's southwest Urban Reserve due to a .
lack of existing infrastructure. Additional water storage capacity will be necessary to
provide long-term water service in this area. EWEB plans to develop reservoirs and
pump stations in this vicinity to serve areas within the urban growth boundary.
2. Lands located in Springfield's eastern Urban Reserve are far from existing water
facilities and will be difficult and expensive to develop due to distance and multiple
service levels.
Wastewater
The Eugene-Springfield wastewater collection system and Regional Wastewater
Treatment Plant are designed only to serve the region's long-term service needs within
the metropolitan urban growth boundary. It will be difficult and costly to expand this
system into large areas outside the urban growth boundary, because the capacity increase
in the collection system would possibly be needed all the way back to the treatment plant.
Stormwater
Eugene's southwest Urban Reserve (Willow Creek area) would be difficult to serve in the
long-term because developable lands upstream are significantly removed from
downstream stormwater facilities. Sites located in the headwaters of Willow Creek are in
a similar situation.
Date Rer"":""i~d
.
98
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAVO~.
Planner: BJ
..- ..~
Estim~ted Project Costs and Timing
The ability to extend water, wastewater, and stormwater facilities is also influenced by their cost
and phasing. For this reason, estimates of costs and timing of the planned projects recommended
in Chapter II are presented here. The financing and phasing of facilities in this plan are not
considered land use decisions and are not adopted as part of the Metro Plan. Information on
project costs and, timing has not been identified for electrical facilities.
Planned Water System Improvements
Planned short- and long-term water projects, and estimated costs and timing are listed in
tables 13 and 14, and shown in Map I: Planned Water Facilities.
Table 13
EWEB Water System Improvements, Estimated Costs, and Timing
Short-Term
107 Green Hill/ Airport mainline 400 1999
108 EWEB/Seneca 42-inch transmission line 6,600 2001
109 City View reservoir (800) 800 2001
110 Hayden Bridge Expansion and I Omg Reservoir and 21,100 2003
Dump gallery
Long-Term
218 Back-uD well field development area 10,100 2007
219 Hayden Bridge-fonner fish hatchery intake 1,000 2010+
modifications
220 Laurel Hill reservoir (850) 830 2005
221 I Laurel Hill reservoir and Dump station (975) 1,000 2007
222 I Laurel Hill DumD station (1150) 150 2007
223 I Shasta reservoir (1150) 500 2006
224 I Dillard reservoir (975) and DumD station (1150) 750 2010+
225 I Dillard reservoir (1150) 500 2010+
226 I Elliot reservoir (607) 5,000 2010+
227 Willamette reservoir (1325) 500 2010+
228 Willamette pumD station (1500) 150 2005-08
229 Timberline reservoir (l100( 500 2008
230 Timberline pump station (1325) 150 2008
231 I Gimple Hill reservoir (975) and pump station 750 2010+
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY OS'..
99' .
Planner: BJ
Table 13
EWEB Water System Improvements, Estimated Costs, and Timing (continued)
232
233
234
235
236
237
Green Hill reservoir (800)
Green Hill reservoir (975)
I Green Hill pump station (975)
I Westside/Cantrell Hill reservoir (607)
I Westside Transmission Main
I Glenwood/LCC Basin intertie
500
500
250
10,000
1,000
500
Table 14. .
SUB Water System Improvements, Estimated Costs, and Timing
I Short- Term
I 101 Install 24-inch line along 1-105 700
1 102 Installl6-inch line to Glenwood 500
I 103 Install 16-inch line along 32"' Street 400
I 104 I Add welles) in existing Thurston well field 350
I 105 Add well at 16m and Q Street 250
I 106 Install new treatment at Thurston 300
I " 107 Add well(s) near Thurston Wellfield 400
I 108 I Install transmission lines along Booth Kelly Road 2,500
into the Natron Area
I 109 I Install new source, Willamette Wellfield 2,000
I I Lon/!- Term
I 202. I Install 16- to I O-inch line in SP railroad right-of- 500
,w~ '
203 Install 12- and 16-inch line along Thurston Road, 500
Main Street, and in South Hills, to supply new
develoDment
204 ,I Puml' station(s) to serve uDller levels 375
205 I Install 16-inch line on SP railroad right-of-way 175
south to Hayden Bridge Way (RWD)
209 I Add UDDer level reservoir(s): (3'", 4m, 5m level) 2,500
211 I Install 16-inch line a1on~ Main Street 400
212 Add well(s) near 31" and Marcola Road 250
214 Add wells near Interstate-5 and Game Farm Road 500
North_
215 I Add wells in Natron area 1,000
216 I Install] 2-inch line, Thurston to Main Street 1,000
100
stlrnatelIil!l::
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2002-2017
2000-201 7
2000-201 0
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2004
2002
2001
2001
2000-2010
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2005-2017
2005-2017
2005-20] 7
2011-2017
2005
2005-2017
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Planner: BJ
Planned Wastewater System Improvements
Planned short- and long-term wastewater projects, and estimated costs and timing are listed in
tables 15 and 16 and shown in Map 2: Planned Wastewater Facilities.
Table 15
City of Eugene
Wastewater System Improvem~nts, Estimated Costs, and Timing .
lillt.tp ",.a't"':'"
71"' ,roJec "'"
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~iNifiliDer:R '
Short-Term
100 West Eu,gene BYj?ass (48-inch)
101 North River Road pump station
102 I North WiIlakenzie gravity sewers
103 I North Enid pump station
LOnJ~- Term
200 North WiIlakenzie pum{l station
20 1 Awbrey Lane PumD station
3,350 2002
315 2002
666 2004
774 2005
645 2008
300 2008
Table 16
City of Springfield
Wastewater System Improvements, Estimated Costs, and Timing
'l~mo.ie::t':$ll
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I Short-Term
I - 104 I Jasper Road sewer extension
I 105 I Game Farm Road trunk sewer
I 106 i Gatewav/Harlow Road DumD station uDgrade
I i Lonf{.-Term
I 202 I East Glenwood gravity sewer
I 203 119m Street pump station
I -
3,500 1999-2004
1,500 1999-2004
1,500 1999-2004
1,100 2005-2006
500 2005-2006
Eugene-Springfield Metropolitan Area Public Facilities arid Services Plan
Date Received
MAY.Oeif008
Planner: ~J
.",-, .
"
Planned Stormwater System Improvements
Planned short- and long-term stormwater projects, and estimated costs and timing are listed in
tables 17 and 18, and shown on Map 3: Planned Stormwater Facilities.
Table 17
City of Eugene Stormwater System Improvements, Estimated Costs, and Timing
Willakenzie Basin Short-Term
I River Point Pond Outlet Channel 1,636
2 Federal Priority Project- Delta Ponds 2,800
Enhancement'
Willakenzie Basin Lon1{-Term
3 Gilham Road System Water Quality Facility 654
4 Gilham Road S,>,stemCulvert Replacement 32
5 Ayers Pond Outfall Retrofit 774
6 Wetland Adjacent Coburg & County Fann Roads 1,152
7 I Modify Ascot Park Open Waterway 662
I Laurel Hill Basin Short- Term
8 Riverview/AugustaHypass and System 650
Improvements
9 Minor System Between Riverview and Augusta 59"
10 1-5 and Augusta Water Quality Facility 1,246"
11' Riverview/ Augusta Minor Storm Drainage 48
System Plan
I Bethel Danebo Basin Short-Term
12 I Green Hill Tributary Stream Enhancements 800
13 I Culvert Replacement in Roosevelt Channel 192
23 I West Irwin Storm 295
I Bethel Danebo Basin Lon~-Term
14 I Royal Node Infrastructure 1,859
15 ./ Retrofit Empire Park Pond 57l
16 I Increase Piee Sizes Along Bell A venue 795
17 I Green Hill Tribu!arv Water Quality Facility 749
18 I Wallis Street Culvert (Bertelsen Slough) 660
19 I Increase Pipe Sizes Along Garfield Street 1,620
Amazon Creek Basin Short-Term
20 Kinney Park Neighborhood Facility 665
21 Federal Priority Project- Upper AmazonCreek 3,300
Restoration
22 I Martin Drive Pille Improvements 92
24 I Hilyard Street Pi\?e Improvements 290
*Total project costs do not iI).clude acquisition costs.
2000-2006
2000-2006
2007-2011
2007-2011
2007-2011
2012-2035
2012-2035
2000-2006
2000-2006
2000-2006
2000-2006
2000-2006
2000-2006
2001
2007-2011
2007-2011
2012-2035
2012-2035
2012-2035
2012-2035
2000-2006
2000-2006
2000-2006
2000-2006
Date ReceivE'd
102
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAYOnOO8
Planner: lJ'
Table 17
City of Eugene
Stormwatcr System Improvements, Estimated Costs, and Timing (continued)
1~~RrojecH~
>N'+h6J}.;;ti0'x&:
'" ,urn .er"L
I Amazon Creek Basin Long-Term
I 25 Federal Priority Project - Central Amazon Creek 3,500
Restoration
I 26 Jackson Street Pipe Improvements 77
1 27 North Laurelwood Water Quality Facility 446
I 28 South Laurelwood Water Quality Facility 371
I 29 1 Pine View Neighborhood Facility 309
I 30 1 43'" A venue Pipe Improvements 2,156
I 31 1 Morse Ranch Park Pipe Improvements 1,004
I 32 I Option B - Laurelwood Flood Control Facilities 2,008
and Pipe ImDrovements "
I 33 I Option B - Mt. Cavalry Pipe Improvements 944 -
1 34 I Mt. Cavalry Water Quality Facility 470
1 35 i Option A - Cleveland Street Flow Diversion 422
1 36 Option B - Brittany Street Pipe Improvements 308
I 37 ' Option B - Windsor Circle PiDe Improvements 968
I 38 Water Quality Facility West of Hawkins Lane '625
I 39 Water Quality Facility atSam R. Street 487
I 40 1 Water Quality Facility at Interior Street 328
1 Willow Creek Basin Short-Term
I 41 I Willow Creek - West Branch Culvert/Channel 36
Retrofits '
I I Willow Creek Basin Lonf!-Term
I 42 I Realign/Restore Main Stem Willow Creek 2,689
I 43 Willow Creek - East Branch Culvert/Channel 980
Retrofits
Willamette River Short- Term
44 Federal Priority Project - WilIamette River Bank 1,000
Restoration
45 1 Polk Street Water Quality Facilities 1 357
1 Willamette River LonJ!-Term 1
46 Federal Priority Project - Eugene Millrace I 2,500
Enhancements
City-wide Pro;ects Short- Term (not mapped) 1
Channel Easement Acquisition 1 950
I .Stormwater Rehabilitation 1 4,579
I City-wide Pro;ects Lonf(- Term (not mapped) 1
I Channel Easement Acquisition I 1,500
I Storm water Rehabilitation I 7,500
2007-2011
2007-2011
2007-2011
2007-2011
2007-2011
I 2012_2035
I 2012-2035
I 2012-2035
1- 2012-2035
1 2012-2035
1 2012-2035
1 2012-2035
1 2012-2035
1 2012-2035
I 2012-2035
I 2012-2035
I
I 2000-2006
1
i 2012-2035
2012-2035
2000-2006
2000'2006
2007-2011
2000-2006
2000-2006
2007-2035
2007-2035
I
I
I
1
I
1
1
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
. MAY 0 6~08
Planner: BJ
Table 17
City of Eugene
StormwlIter System Improvements, Estimated Costs, and Timing (continued)
Ik:!1~prOj~filiG
'?Jt?\t1j/'!:"'-,'KijjC~;2
,,,Numberci':i
I River Road-Santa Clara Basin Short-Term
I 47 Willamette Overflow Channel Upgrade 596 ' 2000 - 2006
I 48 lrvington Road Drainage Improvements ]45 2000 - 2006
" I 49 I River Road Orainage Improvements 40 2000 - 2006
I I River Road-Santa Clara Basin Lon!!- Term
I 50 . I Water Quality Project 65 2007 - 2011
I 51 I Flat Creek Low Flow Channel Upgrade 100 2007 - 2011
I 52 I Upgrade Existing Pipe 97 2007 - 2011
I 53 I A-I Channel UDgrade TBO 2007 - 2011
I 54 Water Quality Facility TBO 2007 - 2011
I 55 Flat Creek Water Quality Facility TBO 2007 - 2011
I 56 Spring Creek Water Quality Proiect TBO 2007 - 2011
I 57 Sprinf\ Creek Culvert Replacement TBO 2007 - 2012
58 A-I Channel, West Tributary ImDrovements TBO 2012 - 2020
['PD 0'''"-,, ""I
,'.~-rolectib'
"%'; "".,' J""~'d .;'!
!=N~btlj~~:f
100
101
102
103
104
105
106
107
108
109
110
lll-A
lll-B
200-A
200-B
200-C
2005-2QJ 0 .J..
nflt~H1 ,.
2005-2010" - I ecelved
MAY O,6ZOOB
Table 18
City of Springfield
Stormwater. System Improvements, Estimated Costs, and Timing
I Short-Term
I Sports Way Oetention Pond
I Maple Island Slough Outfall
I Oeadman Ferry Outfall
Aster Street Sy:stem
Jasper Slough Outfall
20m Street Outfall
T Street Detention Pond
Pierce Industrial Park Drainage
Mill Race Enhancements, including new intake
JasperlNatron Outfall, and associated pipe
systems
Hwy 126/1-105 Drainage Improvements
Cedar Creek: 69m Street Channel improvements
Cedar Creek: nOd Street Channel ImDrovements
Lon/!-Term
Cedar Creek: Outfall/Detention at Lively
ParklMcKenzie River
Cedar Creek: Thurston Middle School Channel
Improvements
Cedar Creek: 66m Street Outfall
Estimated;~.:.iilt:1
,%~,",,,,,,,,,~,*,,,,,,":,,,,,~,/'h..,
7',":,,"':"'" -. ".. ~"~f"'-"""\:1~$
Completion Year,':"
I
400
1,500
150
500
150
250
150
300
1,000
1,500
1999-2004
1999-2004
1999-2004
1999-2004
1999-2004
1999-2004
1999-2004
I 999-2004
1999-2004
1999-2004
450
500
250
1999-2004
1999-2004
1999-2004
250
2005-2010
100
450
104 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Planner: BJ
Table 18
City of Springfield
Stormwater System Improvements, Estimated Costs, and Timing (continued)
200-0 ' Cedar Creek: 75m Street Outfall 250 2005-2010
200-E Cedar Creek: Gossler Bank control project 1,500 2005-2010
200-F Cedar Creek: Diversion System J,500 2010+
200-G Cedar Creek: East Thurston RoadIHwy 126 250 2010+
Outfall and Associated Piping ,'.
201 Thurston Road Interceptor 400 2005-2010
202 Hwy 126 and 87"' Interceptor and Outfall 400 2010+
203 South 79"' Street System 1,000 2005-2010
204 Rocky Point Drive System and Outfall 300 2005-2010
205 Roseborough Detention Pond 300 2005-2010
206 Borden Outfall Upgrade 100 2005-2010
207 Ash Street Outfall 150 2005-2010
208 Manor Drive Outfall 250 2005-2010
209 I 16"' Street Outfall 250 2005-2010
210 I Jasper Slough Improvements 500 2005-2010
211 I Hayden Bridge Road Interceptor 500 2005-2010
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY 062008
105
Planner: BJ
Date ReCR~ved
MAY 057008
106 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Planner: b:J
v. Financing Methods and Alternatives
,
,
This chapter describes financing strategies now used by the metropolitan jurisdictions and
financing issues and challenges, and presents somf alternative financing strategies for wat'er,
wastewater, and stormwater infrastructure systems.
Financing Methods
There are eight basic sources of financing that jurisdictions inthe metropolitan area have
available to fund system operations and maintenarice and/or capital projects:
L User fees,
2. Assessments,
3. Development fees,
4. Property taxes,
5. Grants and loans,
6. Bond;
7. Short-term debt, and,
8, Private financing.
Each source has some legal limitations on how the funds can be used. For example, systems
development charges cannot be used to fund operations and maintenance, and County Road Fund
money can only be used for road-related projects. Ballot Measures 5 and 50 placed legal
constraints on the manner in which jurisdictions finance infrastructure.
Existing Financing Strategies
Financing strategies vary by agency and infrastructure system. In general, ongoing operations
and maintenance and rehabilitation are funded primarily by user fees, while system expansion is
funded primarily by assessments and systems development charges (SDCs) (see Table] 9).
The following summaries describe how each jurisdiction generally handles infrastructure
funding.
. City of Eugene: Public infrastructure improvements are financed by a combination of
assessments, bonds, short-term debt, user fees, and systems development charges (SDCs).
The major source of funds available for capital projects are dedicated funds. Dedicated funds
must be used for a particular purpose. The City'sWetland Mitigation Bank Fund, and the
Storm water and Wastewater Utilities Fund, are supported primarily by user fees. The Road
Fund is supported by state gas taxes and transfers from the Lane County Road Fund. SDCs
and assessments' are paid by properties benefiting from or creating the need for infrastructure
expansion. Projects that are not supported by dedicated revenue, such as off-street bike
paths, are fmanced by a transfer from the General Fund, which is funded by te}am- ~ceived
and other general revenue sources. The City may receive direct funding for proJe~W j}0'\W .
other jurisdictions <;>r through grants and donations. MAY, 0 6' 2008
Eugene-Springfield Metropolitan Area Public Facilities and Services Plaplanner~ [3d
. City of Springfield: The City of Springfield has SDCs for growth-related wastewater and
stormwater improvements, and a sewer user fee for system expansion, extension, and repair.
The City has received grants and loans administered through the Community Development
Block Grant program, the Oregon Economic Development Department's Special Public
Works Fund, and the federal Economic Development Administration. The City issued
,revenue bonds secured by appropriations such as sewer user fees, and general obligation
bonds issued with, approval of the voters. ' '
. Eugene Water & Electric Board (EWEB): About 90 percent ofEWEB's water system
revenues are from user fees. EWEB collects both reimbursement and improvement SDCs.
EWEB currently 'has outstanding water and electric revenue bonds. EWEB serves as the
billing agent for the City of Eugene's wastewater and stormwater fees.
. Rainbow Water District: Rainbow Water District supports operation and maintenance
through user fees and capital improvements through SDCs and user fees.
. Springfield Utility Board (SUB): User fees and DevelopmentlRedevelopment Charges
(SDCs) cover the majority of funding needs for Springfield's water system. The SDCs have
both a reimbursement improvement components. No grants have been received in recent.
years, and there is no perceived need for alternative financing sources in the near future.
. Lane County: County Road Fund money is used for road projects, including the stormwater
component of road improvementS on county roads, and roads within the urban growth
boundary, and outside the city limits.
. Metropolitan Wastewater Management Commission: The Metropolitan Wastewater
Management Commission (MWMC) funds the operation and administration of the Eugene-
Springfield Regional Wastewater Treatment Plant. Its funding is supported by user fees and
systems development charges. .
Financing Issues And Challenges
There are several issues and challenges that service providers, are facing, or expect to face, that
may impact infrastructure financing.
Inter-jurisdictional Assessments
The cities and Lane County have different methods of calculating assessments for public
improvements.' .
Increased Densities -
There are some potential financing challenges related to increased development densities through
in-fill and redevelopment. '
. Stormwater: Using natural drainage systems or preserving existing natural systems
generally takes up more land than the typical piped stormwater system. When pipes are.
used, it allows the owner to continue the use of the surface area.
108 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Planner: BJ.
Date Received
MAY 06'2008
o Wastewater: There may be isolated areas where a major change in density would create a
capacity problem. A capacity problem may also be a result of the age of the system and
infiltration. In addition to ongoing system rehabilitation, there may be areas where helper
pipes will be necessary.
Agin.. Svstems
The cost implications of an aging wastewater iiIfrastructure system are being addressed on a
regional basis. The cities of Eugene and Springfield, and the MWMC, are reviewing the
implications of an aging wastewater collection system on both the capacity of the treatment
plant, and the financial resources ofthe community. There could be significant cost implications
to rehabilitating tIle collection system, including the private costs of system-wide repair of the
piping on individual lots.
F:ndan..ered Soecie~
The listing of spring chinook salmon and steelhead as threatened species will result in stricter
water quality regulations, potentially increasing water, wastewater, and stormwater infrastructure
costs.
Citizen Tax Tnitiative~
The current cl imate of citizen resistance to tax arid fee increases could affect further the abilitY to
pass bond levies, and other revenue generating initiatives. Measure 50, for instance, restricts the
ability of governments to pass property tax measures until general elections or elections
receiving a 50 percent turnout. Other measures that restrict government's ability to raise fees or
taxes have been circulated as initiative petitions recently and may be placed on the ballot at a
future election.
National Pollutant Discharl'e Elimination Svstem: Snrinl'field and Lane Counq:
Springfield and Lane County will need to meet the federal Clean Water Act and EPA's National
Pollutant Discharge Elimination System (NPDES) requirements related to the discharge of
stormwater pollutants within the next few years. This will increase the revenue requirements for
all aspects of the stormwater system. The experience of the City of Eugene indicates that costs
could increase by as much as 60 percent.
Shiftinl' ResDonsibilitvof DeveioDment Costs
Jurisdictions are increasingly shifting the cost of development to those that directly benefit from
the new infrastructure.
Alternative Financing Strategies
Service ~rovider~ are consid~ring alte~ative way~ ~ffinancing infrastructureQatelReeeived
summarizes posslbJe alternative financmg strategIes: ' '.
MAY,06'2008
110 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan , .
Planner: BJ
o Tax increment financing: Urban Renewal Districts could be phased in to areas targeted for
infrastructure improvements. As development occurs, and the taxes increase, the difference
could be used to fund the needed improvements and the district could shift to a new
geographic area. '
o Impact credit banks: Impact credit banks internalize the cost of mitigating impacts by
creating a bank of impact ,credits that can be bought and sold. The banking concept also can
be used to attain/maintain a predetermined level of resource quality by'limiting the total
number of credits (I.e., each credit would equal a particular amount of pollution, and the total
amount of credits would equal the total allowable pollution or impact). '
o Expansion of SDC usage: In some cases, SDCs are not being used to their fullest potential.
For example, the City of Eugene is exploring ways that SDCs could be used to fund
stormwater quality projects. Although legally defensible, there are no jurisdictions in the
area using SDCs to fund this component of the storm water system. Eugene is also in the
process of reviewing all SDCs to determine whether full cost recovery goals are being met.
'0 Private financing: There are many ways private sources can participate in supporting public
infrastructure. Developers commonly pay for a portion of the infrastructure needed for their
development, whether on- or off-site. Property owners pay for many of the on-site
improvements to the infrastructure system, including opting to make on-site storm water
improvements.
o Real estate transfer tax: The tax is based on the sales value of residential, commercial, and
industrial property. The tax generates funds primarily from new development.
o Basin-specific financing: Basin-specific financing focuses the responsibility for the cost of
the system on a user group within a defined geographic area-in this case a drainage basin.
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY 06; ?QOB
Planner: BJ
112
Date Received
MAY 067008
Eugene-Springfield Metropolitan Area Public Facilities and Services Planp' I 0 qJ
' anner, too)
Appendix A
1987 Metro Plan Chapter III-G. PUblicIUtilitie~,
Services, and Facilities Element
Date Received
MAY 06'2008
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan PlannWr: BJ'
114
Date Received
, MAY,O 62008
Eugene-Springfield Metropolitan Area Public Facilities and Services PI~i ~!i- J
rUanner: ".
G. Public Utilities. Services. and Facilities Element
This element considers the provision of water, sewer, power, education, public 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 other necessary community services of a
private nature, such as churches, private schools, and hospitals. In rural areas, users of
facilities and services are widespread, often leading to an inadequate revenue base to
support a higher level of service. Outside the urban growth boundary, little or no
development is expected to occur as compared to areas within the urban growth boundary.
As the metropolitan area grows in population and area, the demand for these services will
increase substantially, requiring careful and coordinated planning and management. The
public's investment in and scheduling ofthese public facilities and programs should be
viewed as one ofthe major means of implementing 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 metropolitan area will
require at least the minimum level of key urban service 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 service to these areas. This element is also intended to provide
the public and private sectors with policies for developmental and program decision
making regarding urban services. For example, development should be coordinated with
the planning, 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 number of governmental
agencies, service districts, 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 countywide. These include health and social services, solid waste
management, tax collection, and the courts system. Eugene and Springfield provide key
urban services to the cities, such as libraries, fire protection, improved streets, police
protection, emergency medical services, and storm sewers. Public and quasi-public utilities
provide other key urban 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 schools
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 Regional Wastewater Program, which is administered by the Metropolitan
Wastewater Management Commission. It is important to recognize the responsibility,
function, and extent of these different providers of key urban services and to provide
guidelines for the propet operation, improvement, and expansion of key urban services in
line with the compact urban growth form and urban service area concept of the General
Plan.
In plaiming for provision of key urban services, it is useful to keep in mind t?e,9!.!i!iI:!cli<}n .' d'-
between the "current urban service area," where a minimum level of urban s~ilMtIJ; neCelVe
MAY 06'2008
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 115
Planner: BJ
available or will be within the near future, and the "projected urban servic~ 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 inanIler
that recognizes the difference between the current and projected urban service areas.
In planning and programming for public utilities, services, and facilities, present and near
future needs of the metropolitan area should be met in a coordinated manner, recognizing
the long-term, ultimate needs,and service area. This metropolitan-wide cooperation is
reflected in the State-mandated Public Facilities Plan. Major public facilities from the
Public Facilities Plan are incorporated as Plan policy in Appendix A. Generally,
construction of projects is based upon the phasing portion of the Public Facilities Plan, but
actu,al decisions on timing and financing are controlled solely by the capital improvements
programming and budget processes of individual jurisdictions.
Amendments to either the project lists or maps in Appendix A are amendments to this Plan
and require simultaneous amendments to this Plan and to affected functional plans,
Changes to the phasing, cost estimates, and project justification will be made from time to
time in conjunction with the semiannual amendment.and update processes; those changes
can be made through the budgeting and capital improvement processes, and do not
necessitate amendments t9 TransPlan or the Metropolitan Plan. Because the Public
Facilities Plan Technical Report is a background document and all public policy aspects are
incorporated directly into the Metropolitan Plan, changes to the Public Facilities Plan
Technical Report can occur at a later time during semi-annual amendment and update
processes.
Findinl!s
I. Urban expansion accomplished through in-filling within and adjacent to existing
development inside the current urban service area and in an orderly, unscattered
fashion permits new developmept to utilize existing utilities, services, and facilities or
those which can be easily extended, thus minimizing the public cost of premature
service extension.
2. Urban services are provided to the metropolitan area by Eugene, Springfield, Lane
County, public and quasi-public utilities, special service districts, and by joint
cooperative agreements.
3. In a few instances there is overlap in public services, utilities, and facilities, or
illogical service boundaries, that prevents the most economical distribution of those
utilities, services, and facilities.
, 4. Portions ofthe 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 metropolitan area is significant.
Date Received
116 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY, 06' 2008
Planner: BJ
6.
The Sewage Master Plan has been replaced by the Metropolitan Wastewater
Management Program and the adopted Eugene-Springfield Metropolitan Area Waste
'Treatment Management Alternatives Report (208 "Facilities" Plan), The Water
Master Plan was never adopted on a metropolitan-wide basis, even though the water
utilities use it 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 "Facilities" Plan) are compatible
with those for the metropolitan area.
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 increase of childbearing persons as a percent of the total population and
the leveling off from a downward trend offertility rates, overall metropolitan school
enrollments are projected to increase both in terms of total number and in 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 district will probably continue to decline into the early 1980's before
beginning to increase; Springfield, Bethel, and private schools will likely follow the
overall metropolitan trend.
II.
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 calolse a disparity 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, additions to existing
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 to residential
ntlighborhoods, and a lack of such facilities can reduce the livability 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 contributors 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.
Date Received
MAY, 0 611~08
Planner: (!},J
Eugene-Springfield Metropolitan AreaPublic Facilities and Services Plan
15. There are no significant increases anticipated in either the overall 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 facilities on the main campus beyond'those
included in the School Master Plan. Increased enrollment will be accommodated
through expansion of off-campus programs.
17. Within rural areas, land uses consist of: 1) those which are primarily intended for
resource management, and 2) those where development has occurred and are
committed to rural development as established through the exceptions process.
18. State law requires development of a Public Facilities Plan to coordinate
implementation of planned water, sanitary sewer, storm sewer and transportation
projects.
Goal
Provide and maintain public utilities, services, and facilities in an orderly and efficient
manner.
Obiectives
1.
Furnish guidelines for public facility programming and decision making that will
result in low.er'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 overlapping 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'development.
6.
,Provide at least the minimum level of key urban services to all urban development
within the metropolitan area.
7.
Except for rural fire protection districts and standard rural electrification systems,
discourage extension or expansion of single services, utilities, or facilities to outlying
areas.
8.
Strive for continued cooperation between major institutions, such as universities and
hospitals, and local ,planning agencies.
Date Recphred
118 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY, 0 6' tOOB
Pnannsll'O L'';'! j
g . _ ~ &l ,,,,,:-.).:.
Policies
I. ln general, the amount of public subsidy for public utilities, services, and facilities,
including schools in new development, shall be reduced. 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 and the Regional Wastewater Sludge
Management Facility, both public facilities service the entire metropolitan area.
b. An existing development 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 ofthe
service. '
In addition, the cities may require annexation as a prerequisite to extending these
services in any instance.
3. A 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
implemented, where appropriate.
4. In those portions of the urban service area where the full range of key urban services
is not available, metropolitan area capital improvement programming (planning,
programming, and budgeting for service extension in an orderly and efficient manner)
shall be developed and maintai'ned. Such a coordinated capital improvements pro-
tram 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.
6. In addition to physical, economic, energy, and social considerations, timing and
location of urban development within metropolitan area shall be based upon the
currentor imminent availability of a minimum level of key urban services.
7. Facility and program planning in the metropolitan area shall 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.
Date ReCAived
MAYO 62008
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 119
Plann' e, r/'oo ;:i,J
~ <l ,"'"'''"' t
8. Efforts shall be made to mitigate the impact ofresidential growth on the metropolitan
area's schools. Cities shall encourage 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 p'ossibly reducing or
postponing the need for new, permanent school facilities.
9. Major institutions, such as universities and hospitals, shall continue joint planning
coordination with local planning agencies.
10. Support financial and other efforts to provide elementary and community schools in
central city areas in order to maintain and increase the attractiveness and stability of
those areas for residential purposes.
11. The school districts shaH 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.
12. Encourage 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 provide one another the opportunity to review and
comment on proposed public facilities, 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.
'. \.
16. Level of services for rural designations:
a. ' Agriculture, Forest Land, Sand and Gravel, and Parks and Open Space. No
minimum level of service is established.
b. Rural Residential, Rural Commercial, Rural Industrial, and Govemment and
Education. On"site sewage disposal, individual water systems, rural level of fire
and police protection, electric and communication service, schools, and
reasonable access to solid waste disposal facility.
17. In the planning for water main extensions within the urban growth boundary,
communications with fire districts, through the referral process, shall occur to ensure '
that extensions include adequate consideration of fire hydrant needs.' Date Recpivod
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PI t" ,
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18. The water, sanitary 'and storm sewer sections of the Metropolitan Public Facilities
Plan shall serve as the basis for guiding water, sanitary and storm sewer
improvements in the metropolitan region.
'19. Additions to or deletions from the project list or significant change to project location
requires amending the Public Facilities Plan.
20. Changes to Public Facilities Plan project phasing schedules or anticipated costs and
financing shall be made in accordance with budgeting,and capital improvement
program procedures of the affectedjurisdiction(s).
21., Project timing and financing modifications do not require amendment of the Public
Facilities Plan., Modifications should be reflected in the Public Facilities Plan at the
next regularly scheduled update.
22. Both timing and financing provisions for public facilities are not considered land use
decisions, and therefore, cannot be, the basis of appeal in accordance with State law.
23. Prior to the completion of the next Plan Update, the Lane County Solid Waste
Management Plan shall be revised to reflect the requirements of the Recycling
Opportunity Act and changes to the inventory of solid waste sources and sites.
~. .',! '
Date R~ceived
MAY 0 6'2008
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan Planrrer: BJ
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122 Eugene-Springfield Metropolitan Area Public Facilities and servicesPlaplannell': BJ
Appendix B
.
Existing Federal, State, and Local Policy Framework
:.,:
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124 Eugene-Springfield, Metropolitan Area Public Facilities and Services Plan
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This appendix discusses the context in'which local policies guiding the provision of public
facilities and services have been developed. This includes a discussion of relevant federal and
'f
, state laws, administrative rules; and local policies and intergovernmental agreements. This
Chapter presents existing policy and does not reflect tbe policy ,changes proposed in Chapter II.
Policy Context
Metro Plan public facilities and services policies are developed within the context of local and
state growth management policies. At the same time, natural systems are playing an increasing
role in the provision of stormwater services, and water quality protection has become a policy
objective for surface water and groundwater systems. Recent federal and state legislation
mandates that local facility planning protect water quality and significant natural resources.
In Oregon, cities manage growth to preserve valuable resource lands, to prevent urban sprawl,
and to provide for the efficien(delivery of public services. Compact urban growth achieves
these objectives. The delivery of public services and facilities is a key component of processes
used by Oregon cities to manage growth.
Metro Plan refinement and functional plans and other local policies, such as Eugene's Growth
Management Policies, provide policy direction for the provision of public services and facilities.
The public facilities plan is a refinement plan of the Metro Plan, TransPlan, and the Airport
Master Plan are functional plans of the Metro Plan. These plans, along with neighborhood
refinement plans and other local goals and policies, refine the broad policy direction in the Metro
Plan. The~e policies are impl~mented through city codes, procedures and capital improvement
programmmg.
In addition to existing local policies, policies proposed in studies and plans now underway or
recently adopted may have imRacts on planning for public facilities and services. These include
the update of TransPlan, the Metropolitan Residential Land and Housing Study, and other work
tasks in the Periodic Review 'fork Program,
In Eugene-Springfield, this policy context is reflected in Metro Plan policies guiding the
following activities.
. Planning ana Coordination
. Services to Development Within the UGB
. 'Services to Areas Outside the UGB
. Locating and Managing Public Facilities Outside the UGB
I
. Financing
Date Received
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Planning and Coordination
~tate Law
State law requires urban service providers to enter into coordination agreements for wastewater;
water; fire protection; parks, open space, recreation; and streets, roads, and mass transit (ORS
'195.020-195.085, 1993). The law defines two types of coordination agreements: cooperative
and urban service agreements. 'Cooperative agreements are required between the county, the
city, and special service districts that provide an urban service inside UGBs. These agreements
describe the terms for communication and cooperation'in comprehensive planning and
amendments to land use regulations regarding the provision of urban services; establish the roles
and responsibilities of each party to the agreement with respect to city or county approval of new
development, water sources, capital facilities, and real property; including ,rights of way and
easements; and specifY the units of local government that shall be parties to an urban service
agreement.
Urban service agreements are among service providers and they specifY who will provide the
service in the future; the future,!service area for each provider; the functional role of each
provider in future service provision; responsibilities for coordinating the service with other
services and for planning, constructing, and maintaining facilities; and the terms of necessary
transitions in provision ofurba!l services, ownership offacilities, annexation of service territory,
transfer of moneys or certain project responsibilities, and merger of service providers.
State law also requires coordin!ltion of population forecasts: "The coordinating body under ORS
195.025(1) shall establish and maintain a population forecast for the entire area within its
boundary for use in maintaining and updating comprehensive plans, and shall coordinate the
forecast with the local governments within its boundary." (ORS 195.036,1995) LCOG has
been dele'gated responsibility as the coordinating body in Lane County.
Lane County Local Govermrient Boundarv Commission
Boundary changes to special sl{rvice districts are governed by ORS 199. In addition to
annexations, withdrawals, or transfers of territory, the Lane CountY Local Government Boundary
Commission (Boundary Commission) has responsibility for forming, merging, consolidating, or
dissolving special service districts, Special service districts can extend services outside their
boundaries or add a new function only with Boundary Commission approval (ORS 199.464).
Local Aoreements
Public service providers can,e~ter into intergovernmen~l a"..:..:....ents to address interim service
provision to territory within the urban growth boundary; and some agreements, above, are
required by state law. As part pf a Transportation and Growth Management (TGM) Program
grant in 1994, coordination agreements were adopted for all urban services in Springfield's
portion of the UGB.
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State law and local policies encourage the efficient delivery of public services and facilities and
economies of scale through the<establishrnent of policies and agreements. The primary
objectives of these policies and agreements is to discourage fragmentation and duplication of
service providers within the UGB and to spell out the terms of transition in service.
In 1986, the cities and Lane County entered into Urban Transition Agreement, transferring
certain building and land use responsibilities within the urbanizable portion of the UGB to the
cities. In 1987, urban transitiori agreements for streets and roads were adopted by Springfield,
Eugene, and Lane County. These agreements transferred jurisdiction, from the county to the
cities, of some county roads inSide the cities; and provide that transfer of jurisdiction continues
as county roads are annexed to a city.
Metro Plan
The Metro Plan provides policy direction that encourages merging and consolidating fringe
special service districts and ultimately dissolving special service districts within the UGB
(Metro Plan, policies #17 and #18, page Il-B-6).
Annexations to existing special service districts may be considered if annexation to a city is not
possible because the minimum.level of urban services cannot be provided in a timely manner '
(Metro Plan,policies #19 and #20, page II-B-7). Annexation agreements between the property
owner and the city must be obtained prior to annexation to an existing special district, except for
annexations to rural fire protection districts(Metro Plan, policy #19, page Il-B-6).
School districts within the UGB are encouraged to 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 (Metro Plan
policy #11, page 1lI-G-6).
Services to Developm~nt Within the UGB
~tatewide Plannin.. Goal 14
Oregon's statewide planning la~ requires cities to establish UGBs that will accommodate the
land use needs of the projected'20-year population. In Eugene and Springfield, the UGB was
established through the development and acknowledgement of the Metro Plan. The UGB was
established, in large part, based on existing facility capacities, ability to extend services logically,
and relative costs of serving alternative potential growth regions. The Metro Plan requires that
an urban level of development .occur inside a city and allows development within the urbanizable
UGB area under certain circurrtstances with' urban services.
Goal 14, Urbanization, governs how and under what conditions UGBs can be amended. This-
goal is "to provide for an orderly and efficient transition from rural to urban land uses" and it' . d
requires all cities to estimate f~ture growth and needs for land and to plan and zone ~~rRecelve
to meet those needs. It calls for each city to establish an "urban growth boundary" to i~~tffy ,
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and separate urbanizable land from rural land." It lists four criteria to be applied when
undeveloped land within a UGI3 is to be converted to urban uses, one of which is consideration
of "orderly, economic provisio~ for public facilities and services." Amendments to this Goal are
currently being considered by the Land Conservation and Development Commission (LCDC).
In order to expand the UGB, it'~must be demonstrated to the LCDC that the expansion meets the
following criteria: (a) there is a demonstrated need for the development; (b) there are no suitable
sites within the existing UGB ~nwhich the development can occur; (c) urban services can be
provided; and (d) the proposed amendment is consistent with the Statewide Land Use Goals and
,Guidelines. In Eugene-Springfield, the local process used to amend the UGB is contained in the
Plan amendment process outliri'ed in the Metro Plan.
Statewide PlanniDl' Goal 11 ,
The draft Eugene-Springfield Metropolitan Area Public Facilities and Services Plan is proposed
for compliance with Statewide;Planning Goal I I, "to plan and develop a timely, orderly and
efficient arrangement of public: facilities and services to serve as a framework for urban and rural
development." Goal I I and Ofegon Administrative Rules (OAR Chapter 660, Division 11),
spell out the legal framework for public facility planning in Oregon.
Goal 11 and administrative rules require cities with a population over 2,500 to adopt a public
facilities plan for areas within a UGB. The public facilities plan must describe the water,
wastewater, stormwater, and transportation facilities that are to support the land uses designated
in the comprehensiye plan within the UGB. '
The public facilities plan must also provide for solid waste disposal sites, including sites for inert
waste (Goal 11).
The public facilities plan must be adopted locally as a support document to the Metro Plan. The
following components of the public facilities plan are also adopted as part of the Metro Plan:
1. Project titles, which may exclude descriptions and specifications;
2. Map or written description of the projects' locations or service areas; and,
3. Comprehensive plan policies or agreement.
The plan must describe the water, wastewater, and stormwater facilities necessary to support the
land uses designated in the comprehensive plan within the urban growth boundary. The public
facility systems are:
1. Water: water sources and the treatment, storage, pumping, and primary distribution
systems; ,
2. Wastewater: treatment facilities and primary collection systems;
3, Stormwater: major drainageways (major trunk lines, streams, ditches, pump stations, and
retention basins) and olltfalllocations; and,
Date Received
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128 Eugene-SpringfieldMetropolitan Area Public Facilities and Services Plan
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4. Transportation: Statewide Planning Goal 12, Transportation Planning, and associated
OAR provide that Tran~portation System Plans adopted pursuant to Goal 12 requirements
fulfill the requirements for public facilities'planning under Goal II (OAR 66-12-000).
OAR 660-11-010 directs that public facilities plans contain inventories, projects, and policies, as
described below.
1. Inventol'\l.
"
An inventory and general assessment of the condition of all the public facility systems
serving land in the urbll!1 growth boundary, including: the mapped location of the facility
or service area; facility capacity or size; and general assessment of condition of the
facility (e.g., very good~ good, fair, poor, very poor).
2. Proiects
List of significant projects needed to serve land in the urban growth boundary, including:
project specifications as necessary; a description of each project in terms of the type of
facility, service area, and facility capacity; rough cost estimates of each project; a map or
written description of each project's location or service area; an estimate of when each
project will be needed; and a discussion ofthe provider's existing funding mechanisms.
Projects that will serve ,future development in the UGB should be identified as occurring
in either the short term (five years or less) or long term (six years or more). Short-term
projects must identify an approximate year for development.
3. Policies
Policies or an urban growth managem~nt agreement designating the provider of each
public facility system, or if more than one provider, the providers of each project.
Public facilities plans must be adopted locally as'a support document to the comprehensive plan.
The following components of the public facilities plan are adopted as part of the comprehensive'
plan:
I. Project titles, which may exclude descriptions and specifications;
2. Map or written description ofthe projects' locations or service areas; and
3. Comprehensive plan policies or agreement.
OAR 660-1 I -005 states that "~roject timing and financing provisions of public facility plans
shall not be considered land use decisions as specified under ORS 197.0 15(l 0)." Project timing
and financing provisions inthelpublic facilities plan are not adopted as part of comprehensive
plans,
OAR 660-11-045(2) anticipate~ that circumstances may change over time that may alter the
project descriptions or location:and, therefore, the public facilities plan does not: prohibit . d
projects not included for whic~ unanticipated funding has been obtained; preclude Bate Receive
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specification and location decisions made according to National Environmental Policy Act
(NEP A); or require formal ado~tion processes for administrative or technical changes to the
public facilities plan. The rule defines administrative changes as those modifications to a public
facility project which are minor in nature and do not significantly impact the project's general
description, location, sizing, capacity, or other general characteristic of the project. Technical
changes include those modifications to a public facility project that are made pursuant to "final
engineering" on a project or those that result from the findings of an Environmental Assessment
or Environmental Impact Statement (EIS), conducted under regulations implementing the
procedural provisions of the NEP A, or any federal or State of Oregon agency project
development regulations consistent with that Act and ,its regulations.
Lane County Local Government Boundarv Commission
The Lane County Local Government Boundary Commission (Boundary Commission) has the
statutory authority to review and take action on a variety of boundary changes, including
annexations to a city. Boundary changes are govemedby the provisions ofORS 199, the
boundary commission statute. Boundary Commission review and approval are required for
extraterritorial extension (i.e., extension outside city limits) of all water lines, any gravity
wastewater line eight inches or larger and all force lines, regardless of size. Boundary
Commission policies support annexation to cities as the method by which urban services are
provided to new development within a UGB. The Boundary Commission must act consistently
with local comprehensive plans.
Metro Plan.
In accordance with the Metro Plan, the extension of water and wastewater service outside the
city within the UGB can be allowed only when annexation to a city is not possible and
annexation consents are obtained from the affected property owners (Metro Plan policy #21, '
page Il-B-7). The exception to this policy in the Metro Plan is the extension of wastewater
service to developed properties outside the city within the UGB in the River Road/Santa Clara
area, consistent with the Metro Plan objective to eliminate groundwater pollution from
individual septic tank disposal systems in this area (Metro Plan, policy #4, page 11-0-7).
In order to assure compact urban growth, the Metro Plan requires that all land divisions under
ten acres outside the city be part of a conceptual development plan that demonstrates ultimate
development will occur at urban densities (Metro Plan, policies #25, page Il-B-7 and #26, page
II-B-8). The county UF-IO and UL subdistricts apply to property in the urbanizable area to
prevent it from being subdivided prior to annexation. It is the cities' current practice to approve
new subdivisions only after annexation to the city.
The Metro Plan is based on the premise that Eugene and Springfield, the two existing cities, are
the logical providers of services accommodating urban levels of development within the UGB
(Metro Plan, Plan Principle #6, page II-I). The Metro Plan identifies the cities of Eugene and
Springfield and their respective utility branches, Eugene Water & Electric Board (EWEB) and
Springfield Utility Board (SUB), as the water and electrical providers within the UGB (Metro
Plan, policy #16, page II"B-6). State law passed in 1987 provides that "nothing contained in any
. , Date Received
130 Eugene-Springfield ,Metropolitan Area Public Facilities and Services Plan ,
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Planner: r3,J
public facility or comprehensive plan of any city shall confer any right on a city to provide
electric utility service in or to the annexed territory." (ORS 221.475, 1987)
When an annexation to a city is approved, upon the effective date, the annexed area is
automatically annexed to the Lane County Metropolitan Wastewater Service District and the
Willamalane Park and Recreation District (in Springfield), if the territory is not already within
this district (ORS 199.510).15 ,When annexed territory lies within a runil fire protection district,
it is withdrawn automatically from that district upon the effective date of the annexation (ORS
199.510). When annexed territory is within a water district, it is withdrawn from the district by
the city in accordance with provisions in ORS 222 after the effective date of the annexation
(ORS 199.510).
The Metro Plan' provides that annexation to a city is the highest priority method by which new
urban services will be provided to territory within the UGB (Metro Plan, policy #20, page II-B-
7). When the minimum level of urban services can be provided by a city, the property to'be
served must be annexed (Metro Plan policy #7, page 11-8-4). Only when the minimum level of
services cannot be provided by'ithe city in a timely manner can other alternatives be considered" '
such as extension of water and wastewater services outside of the city or annexation to an
existing special district (Metro Plan policy #19, page I1-B-6; and policy #20 and #21, page I1-B-
7).
The minimum level of key urban facilities and services in the Metro Plan are: wastewater
service, solid waste management, water service, fire and emergency medical services, police
protection, parks and recreation programs, electric service, land use controls, communication
facilities, and public schools on a district-wide basis. Paved streets with adequate provision for
stormwater runoff and pedestrian travel, meeting applicable local policies, are important,
particularly in new developments and along existing streets heavily used by pedestrians. (Metro
Plan policy #7, page I1-B-4).
In accordance with the Metro Plan, water or wastewater lines can be extended to contiguous
annexed property prior to the annexation effective date when no portion of the line extends
outside the city or the annexation area. The city may request boundary commission approval to
extend a water or wastewater line to serve noncontiguous annexed property; but, when any
portion of a line will run through unincorporated territory to serve contiguous or noncontiguous
property, the city must demonstrate that the extension will not result in hook-ups outside the city
or lead to premature development prior to annexation.
Land annexed to a city may be contiguous to the city or, if noncontiguous, must meet the
following criteria (Metro Plan policy #11, page I1-B-5):
1. The area to be annexed will be provided an urban service(s) which is (are) desired
immediately by residents/property owners.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan'
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15 Oregon law was amended in 1989 to allow concurrent annexation to the park district.
2. The area to be annexed can be served (with minimum level of services as directed
in the Metro Plan) in a timely and cost-efficient manner and is a logical extension
of the city's service delivery system.
3. The annexation proposal is accompanied by support within the area proposed for
annexation from the owners of at least half the land area in the affected territory.
Local Infill and Redeveloument Policies
The Metro Plan contains policy direction throughout to encourage higher residential densities
and to use existing vacant land':md under-used land within the existing UGB more efficiently.
This direction is supplemented by policies to encourage in-fill, mixed use, and redevelopment,
and improved building and site design, among others.
The Eugene Growth Management Policies were adopted by the Eugene City Council in 1998 and
guide capital improvement programming in that city. The policies require that:
Development shall be required to pay the full cost of ex/ending infrastructure and
services, except that the city will examine ways to subsidize the costs of providing
infrastructure or offer other incentives that support high-density, in-jill, mixed use, and
redevelopment, (Policy #14).
Target publicly-jinanced infrastructure extensions to support development for higher
densities, in-jill, mixed uses, and nodal development, (Policy #15)
The draft TransPlan encourages nodal development, the concentration of higher density housing
in close proximity to employment and commercial centers.
Natural Resources and Stormwater
Federal Law Affecting Natural Resources
Recent federal laws and policies reflect a changing philosophy in regards to water quality,
habitat protection, and storm water management. These laws are requiring state and local
governments to plan for stormwater facilities in a way that meets the needs of the community in
the future. In general, federal regulations require local plans that: I) reduce nonpoint source
pollution; 2) prevent illicit discharges into stormwater systems; 3) implement water quality
improvements through use of oest available technology and best management practices (BMPs);
4) provide for new and innovative methods of flood control through development restrictions;
and, 5) increase integration between stormwater facility planning and land use planning.
Date Received
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The 1987 re-authorization of the Clean Water Act (CW A) required, for the first time, local
communities to reduce the discharge of pollution into storm drainage systems and the waters of
the United States. The goal of the CW A is to preserve and enhance water quality that protects
fish, shellfish, and wildlife and provides opportunities for recreation. In Oregon, the Department
of Environmental Quality (DEQ) has the authority to regulate and manage the permit system
established by the CW A.
There are six Titles or chapters in the CW A. Title lV is the heart of the CW A, which describes
the National Pollutant Discharge Elimination System (NPDES). Amendments to the CW A in
1987 established requirements for the NPDES Permit for stormwater discharges from municipal
dischargers. The NPDES permit guidance contains the following guidelines: I) prohibit
discharge of anything except stormwater into the storm drainage system; 2) establish' controls to
reduce discharge of nonpoint source pollutants to the maximum extent possible; and, 3) set a
priority action plan for the five-year term of the permit.
The Endangered Species Act (ESA) provides for the conservation of species that are in danger of
extinction throughout all or a significant portion of their range. The ESA requires a list of
endangered or threatened species to be maintained by U.S, Fish & Wildlife Service (USFWS).
The process used to protect and recover these species is a fairly complicated series of steps taken
between the listing agency, either National Marine Fisheries Service (NMFS) or USFWS and
affected parties. Generally, the USFWS coordinates ESA activities for terrestrial and freshwater'
species, while NMFS is responsible for marine and anadromous species.
The listing of coho salmon and steelhead as endangered species is likely to result in stricter water
quality regulations that would impact water, wastewater, and stormwater systems in the
Eugene/Springfield metropolitan area.
The Safe Drinking Water Act is the principal federal law regulating groundwater quality.
Various parts of it are managed by the following State and federal departments: Oregon Health
Division, DEQ, and the Water Quality division of the Environmental Protection Agency (EPA).
Regulations implementing this act are aimed at protecting the quality of water provided by
drinking water systems.
Other federal policies specific to natural resource protection and stormwater planning include:
the NEP A, requiring full disclosure of environmental impacts for any federal action or activities
funded, licensed or approved by federal agencies; Fish and Wildlife Coordination Act, requiring
the Army Corps of Engineers (ACOE) to coordinate with the USFWS, NMFS, and the Oregon
Department of Fish and Wildlife to prevent destruction of aquatic life during waterway
development and other actions; and, Executive Order 11990 Wetland Protection (1977),
requiring federal agencies to protect wetland resources to preserve and enhance the natural and
beneficial values of wetlands in carrying out their responsibilities.
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY,O $32008
Planner: BJ
State Law AffectiDlJ Natural Resources
The following Oregon'Statewide Planning Goals guide protection of natural resources through
the land use planning process.
. Goal 5: Natural Resources, Scenic and Historic Areas, and Open Spaces. To protect'
natural resources and to'conserve scenic and historic areas and open spaces. Under Goal
5 policies and OAR 660-23-90, state and local jurisdictions must identitY and protect
significant riparian corridors.
. Goal 6: Air, Water and Land Resources and Quality, To maintain and improve the
quality of the air, water, and land resources of the state.
. Goal 15: Willametle River Greenway: To protect, conserve, enhance, and maintain the
natural, scenic, historical, agricultural, economic, and recreational qualities of lands along
the WilIamette River as the WilIamette River Greenway. ,
Other Oregon policies and rules guiding water resource management and stormwater planning:
The Oregon Water Resources Department Water Plans/Rules sets the minimum flow rates for
the WiIlamette and McKenzie rivers. These rules control the use of rivers for recreational or
commercial uses such as boating or irrigation, and regulate these uses for the purpose of
maintaining water quality. The Oregon Removal-Fill Law requires a permit for any activity that
proposes to fill, remove, drain, or alter 50 or more cubic yards of material within the bed or
banks of Oregon waters; the definition of Oregon waters includes wetlands. These permits are
administered by the Oregon Division of State Lands. The State and Federal Surface Water
Treatment Rule requires investigations of groundwater supplies to determine if the quality of
water is influenced by nearby rivers. If applicable, additional treatment is likely necessary.
ORS Chapter 468B contains water quality legislation that addresses water pollution control in
Oregon. OAR Chapter 340 contains rules that describe the role and guidelines for the state
agencies that enforce many sections of the federal Clean Water Act: DEQ and the Environmental
Quality Commission (EQc)'
Local Natural Resource Plans and Polici~
There are no existing policies or findings related to natural resources in the existing Public
Utilities, Services, and Facilities Element because the last major update of the Metro Plan was in
1987, prior to federal, state, and local policy direction to address water quality objectives in local
stormwater programs. For this ,reason, stormwater-related natural resources are addressed in
other elements of the Metro Plan, such as the Environmental Resources Element and
Environmental Design Element. Through the current planning process, new policies have been
developed that address natural resource protection and aim to reduce the environmental impacts
associated with stormwater run'off and facilities management. '
The Metro Plan Environmental Resources Element contains policies pertaining D~eceived
regulations and development considerations on downstream impacts (Metro Plan, polifAf 8~32008 '
134
Eugene-Springfield,Metropolitan Area Public Facilities and Services Pl"'Pianner: BJ
page 11I-C-7), and provides direction for wetlands protection, and water quality and quantity
programs, (Metro Plan policies #18-20, 22, page lI1-C-IO). The Willamette River Greenway,
River Corridors and Waterway Element contains policies that address acquisition and
enhancement of river corridors and waterways (Metro Plan policy #2-3, page 111-0-4). The
Environmental Design Element contains policies regarding drainageway protection (Metro Plan
policy #2, page III-E-3).
Refinement plans to the Metro Plan, such as the West Eugene Wetlands Plan (WEWP), and the
Willow Creek Special Area Study, also address the issue of stormwater and support the use of
management approaches that incorporate natural systems for water quality and other beneficial
uses. The WEWP was adopted in 1992 by the City of Eugene and Lane County, that outlines
mechanisms for balancing wetland protection with urban development. The WEWP calls for the
protection of over 1,000 acres of wetlands through a multiple objectives strategy addressing
flood control, drainage services, water quality treatment and natural resources. The WEWP
fulfills federal CW A regulations surrounding fill activities within jurisdictional wetlands.
Much of the metropolitan area's natural resource system is also its drainage system. The
Metropolitan Natural Resources Study, a work task in the Periodic Review, is now underway.
This study guides the management of riparian areas, waterways, wetlands and uplands.
Resulting policies will reflect the increasing awareness that significant natural systems in the
Eugene-Springfield metropolitan area be protected for their flood control, water quality, wildlife
habitat, recreation, and education values. '
The federal NPDES process for nonpoint source pollution mandates that local jurisdictions craft
their own planning solutions and land use regulations appropriate for specific local situations.
The City of Eugene's Comprehensive Stormwater Management Plan (CSWMP, 1993), was
developed in response to these new federal requirements. CSWMP primarily contains water
quality policies that regulate surface runoff. Federal CW A requirements will soon be extended
to apply to Springfield and to the urban areas of Lane County.
Existing policies and plans in the Eugene-Springfield area support water quality and quantity
improvements through site plarining for new construction, public education, use of natural
systems, preservation of natural drainageways, and reduction of street -rdated run-off problems.
To summarize, stormwater management policies developed through local plans:
. Establish and support a"stormwater administration and management programs that
include natural resource protection;
. Protect significant natural resources to serve multiple objectives, including storm water
storage and conveyance;
. Use constructed \\(etlands, wetland enhancement, and waterways for stormwater
treatment, storage, and conveyance;
. Create and protect a connected natural storm water system;
. Use a comprehensive wetlands mitigation program to guide planning future stormwater
systems;
., Create a comprehensive stormwater monitoring, and maintenance program to serve
multiple stormwater man~gement objectives; and, , Date Received
. Develop a plan for finanCIng the storm water management program. ,
MAYOno08
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan 135
Planner: BJ
Services to Areas Outside the UGB
1) rhan Reserves
There are three areas designated Urban Reserve in the Metro Plan diagram. Located outside the
UGB in East Thurston, Willow Creek, and north oflrvington Drive in north Eugene, all three of
these areas are located within t~e Plan boundary of the Metro Plan. Territory within the Metro '
Plan Boundary serves as an interface between the area encompassed in the Metro Plan and areas
subject to the Lane County Rural Comprehensive Plan. In order for urban reserve areas to
develop at urban levels with urban services, they must be included within the UGB.
When the Metro Plan was adopted in 1982, the urban reserves were found to be the most
economical areas outside the UGB to serve with water, wastewater, and stormwater. These areas
were designated at that time to assist in the preparation of capital improvement programs that
extend beyond the planning period of the Metro Plan.
Metro Plan policy provides that urban levels of public utilities, facilities, and services shall be
designed and sized to serve urblln reserve areas; and that capacity and financing plans shall be
calculated to serve urban reserve lands. The Metro Plan assumed that these areas would develop
as low-density residences at densities assumed in the Plan at that time and that they would add
approximately 25,000 to 30,000 additional people beyond the projected Metro Pla~ population.
The Metro Plan provides that development, land division, and public improvements (such as
street design) in areas designated urban reserve shall be designed and regulated so as to not
preclude possible subsequent development at urban densities. For the most part, these areas were
designated to protect natural resource ~alues until they were to be added to the UGB. (See Metro
Plan, page Il-E-14).
ln 1992, the LCDC adopted a new administrative rule, OAR 660 Division 21, authorizing and
defining urban reserves. One of the work tasks in the current Eugene-Springfield Periodic
Review Work Program is to evaluate the existing urban reserves for consistency with this OAR
and to revise the urban reservtls as needed to comply with'the rule.
Locating and Managing Facilities Outside the UGB
As part of the policy analysis for this study, state law related to the placement of urban facilities
outside UGBs was reviewed and analyzed.
~ State law allows water, electric, and wastewater facilities that only serve land within the UGB to
locate on farm or forest land, in accordance with the specifications in state law and local
processes, without requiring a goal exception. The same is true for storm water facilities on farm
land. ,The relevant ORS and OM sections follow this analysis.
Farm land: Needed utility facilities are allowed, including natural and constructed water
and storm water conveyance, storage and treatment facilities (including storm water
detention ponds); and electric transmission and distribution lines (although cDafei~eceived
136
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 06'2008
Planner: BJ
facilities for the purpose of generating power for public use by sale and transmission
towers over 200 feet in height must meet the standards in ORS 215.296).
Forest land: The following uses are allowed when they show compliance with OAR
660-06-025(5): reservoirs and water impoundment, water intake facilities, related
treatment facilities, pumping stations, and distribution lines; new electric transmission
lines with right of way widths up to 100 feet as specified in ORS 772.2] 0, transmission
towers, and utility facilities under ten acres for the purpose of generating power.
Stormwater facilities on forest land do require a goal exception.
Farm or forest land: Goal 11 allows wastewater facilities 16 to be lo~ated outside UGBs,
as necessary to serve land inside the UGB or to connect to components of the sewer
system lawfully located on rural lands, such as outfall or treatment facilities, as long as
such placement complies with ORS 215.296 (except systems located in the subsurface of
public roads and highways along the publiC right of way).
Farm Land
ORS 215.213
Uses permitted in exclusive farm use zones in counties that adopted marginal
lands system prior to 1993.
(1) In counties that have adopted marginal lands provisions under ORS
197.247 (1991 Edition), the following uses may be established in any area
zoned for exclusive farm use:
;
(d) Utility facilities necessary for public service, except commercial
facilities for the purpose of generating power for public use by sale
and transmission towers over 200 feet in height.
(s) Creation of, restoration of or enhancement of wetlands.
(2) In counties that have adopted marginal lands provisions under ORS
197.247'(1991 Edition), the following uses may be established in any area
zoned for exclusive farm use subject to ORS 2] 5.296:
(g) Commercial utility facilities for the purpose of generating power for
public use by sale.
(I) transmission towers over 200 feet in height.
ORS 215.296
Standards'for approval of certain uses in exclusive farm use zones; violation
of standards; complaint; penalties; exceptions to standards. (I) A use allowed
under ORS 215.213(2) or 215.283 (2) may be approved only where the local
governing body or its designee finds that the use will not:
16 "Pipelines or conduits, pump ~tatj9ns, force mains, and all other structures, devices, appurtenances and facilities
used for treating or disposing of sewage or for collecting or conducting sewage to an ultimate poiI1f4>r tr&atm~ .
and disposal"[(OAR 660-011-060 (J)(f)]. Uale necelved
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY 0liF2008
Planner: BJ
(a) Force a significant change in accepted farm or forest practices on surrounding
lands devoted to farm or forest use; or
(b) Significantly increase the cost of accepted farm or forest practices on
surrounding lands devoted to farm or forest use.
OAR 660-033-130(16)
A facility is necessary if it must be situated in an agricultural zone in order for
the service to be provided:
Forest Land
OAR 660-06-025
Uses authorized in Forest Zones.
(3) The following uses may be allowed outright on forest lands:
(c) local distribution lines (e.g., electric, telephone, natural gas) and accessory
equipment (e,g., electric distribution transformers, poles, meter cabinets,
terminal boxes, pedestals), or equipment which provides service hookups,
including water service hookups;
(i) water intake facilities, canals and distribution lines for farm irrigation and
ponds;
(4) The following uses may be allowed on forest lands subject to the review standards
in section (5) of this rule:
(g) television, microwave, and radio communication facilities and transmission
towers;
(i) utility facilities for the purpose of generating power. A power generation
facility shall not preclude more than ten acres from use as a commercial forest
operation unless an exception is taken pursuant to OAR Chapter 660, Division
4' .
,
(k) water intake facilities, related treatment facilities, pumping stations, and
distribution lines;
(I) reservoirs arid water impoundments;
(P) new electric transmission lines with right of way widths up to 100 feet as
specified in 'ORS 772.210. New distribution lines (e.g., gas, oil, geothermal)
with rights-of-way 50 feet or less in width;
138
,
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY, 0 6.'2008
Planner: BJ
(5) A use authorized by section (4) of this rule may be allowed provided the
following requirements or their equivalent are met. These requirements are
designed to make the use compatible with forest operations and agriculture and to
conserve values found on forest lands:
(a) the proposed use will not force a significant change in, or significantly
increase the cost of, accepted farming or forest practices on agriculture or
forest lands;
(b) the proposed use will not significantly increase fire hazard or significantly
increase fire suppression costs or significantly increase risks to fire
suppression personnel; and
(c) a written statement recorded with the deed or written contract with the county
or its equivalent is obtained from the land owner which recognizes the rights
of adjacent and nearby land owners to conduct forest operations consistent
with the Forest Practices Act and Rules for uses authorized in subsections (4)
(e), (I) (r), (s) and (v) of this rule.
Statewide Planninl' Goal]]
Goal II and associated administrative rules were amended in 1998, in part to determine under
what circumstances wastewater collection systems can locate or be extended outside urban
growth boundaries.
The Goal and rules now allow components of a wastewater system that exclusively serve lands
inside an urban growth boundary to be placed on lands outside the urban growth boundary,
provided: I) the local government adopts land use regulations to ensure the wastewater system
shall not serve land outside urban growth boundaries or unincorporated community boundaries,
except as authorized to mitigate a public health hazard; 2) the local government determines that
the system satisfies ORS 215.296(1) or (2) to protect farm and forest practices, except for
systems located in the subsurface of public roads and highways along the public right of way;
and, 3) that such placement is necessary to d? one or more of the following:
I. serve lands inside the urban growth boundary more efficiently by traversing land outside
the urban growth boundary; ,
2. serve land inside a nearby urban growth boundary or unincorporated community;
3. connect to components of the sewer system lawfully located on rural lands such as outfall
or treatment facilities; or
4. transport leachate from a landfill on rural land to a wastewater system inside a urban
growth boundary [OAR 660-011-0060(3)].
The revised administrative rules allow, but do not require, a new wastewater collection system or
extension of a' system to serve land outside the urban growth boundary only to mitigate a public
health hazard that is caused by pre-existing development where there is n'o practical alternative to
a wastewater system to abate the health hazard [OAR 660-011-0060(4)].
Date Received
Eugene-Springfield,Metropolitan Area Public Facilities and Services Plan 139
MAY 06'2008
Planner: 8J
The 1998 Goal 11 rule changes also prohibit local land use regulations applicable to lands,
outside urban growth boundaries to allow an increase in either the allowable density or in a
higher density of residential development due to the presence, establishment or extension of a
water system. [OAR 660-011-0065(2)].
Boundarv Commission
Boundary Commission policies do not prohibit the extension of lines outside cities, but the
Boundary Commission must act consistently with adopted local comprehensive plans.
Locating Facilities Outside the UGH to Serve the Urban Area
Statewide Plannin.. Goal 11
Goal 11 administrative rules now allow components of a wastewater system that serve lands
inside a UGB to be placed on lands outside the UGB provided: I) the local government adopts
land use regulations to ensure the wastewater system shall not serve land outside UGBs or
unincorporated community boundaries, except as authorized to mitigate a public health hazard;
2) the local government determines that the system satisfies ORS 215.296(1) or (2) to protect
farm and forest practices, except for systems located in the subsurface of public roads and
highways along the public rights-of-way; and 3) that. such placement is necessary to do one or
more of the following:
I. serve lands inside the UGB more efficiently by traversing land outside the UGB;
2. serve land inside a nearby UGB or unincorporated community;
3. connect to components of the wastewater system lawfully located on rural lands such as
outfall or treatment facilities; or transport leachate from a landfill on rural land to a
wastewater system inside a UGB [OAR 660-011-0060((3)].
Statewide Plannin.. Goals 3 and 4
Statewide Planning Goal 3, "to preserve and maintain agricultural lands," and accompanying
administrative rules restrict the land uses that can be located on Exclusive Farm Use (EFU)
zoned land; and Goal4 restricts the land uses that can be located on Forest Land. "Farm use" is
defined in ORS 215.203. Goal 3 authorizes counties to allow farm uses and those non-farm uses
defined by (LCDC) commissiofl rule that will not have significant adverse effects on accepted
farm or forest practices.
Locatinv Water, Stormwater, and Electric Facilities
. Farm Land: Needed utility facilities are allowed, including natural and constructed water
and stormwater conveyance, storage and treatment facilities (including storm water detention
ponds); and electric transmission and distribution lines (although commercial facilities for
the purpose of generating power for public use by sale and transmission towers o~r 2..Q0 f\ft . d
in height must meet the standards in ORS 215.296). u8te neCelVe
MAY 06'2008
140
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Planner: BJ
. Forest Land: The following uses are allowed when they show compliance with OAR 660-
006-0025(5): reservoirs and water impoundment, water intake facilities, related treatment
facilities, pumping stations, and distribution lines; new electric transmission lines with right-
of-way widths up to i 00 feet (as specified in ORS 772.210), transmission towers, and utility
facilities under ten acres forthe purpose of generating power. Stormwater facilities on forest
land do require a goal exception.
Locatinv Wastewater Facilities,
. Farm or Forest Land: Goal 11 allows wastewater facilities to be located outside UGBs, as
necessary to serve land inside the UGB or to connect to components of the wastewater
system lawfully located on rural lands, such as outfall or treatment facilities, as long as such
placement complies with ORS 215.296 (except systems located in the subsurface of public
roads and highways along the public rights-of-way).
In conclusion, state law allows water, electric, and wastewater faciliti~s that only serve land
within the UGB to locate on farm or forest land, in accordance with the specifications and
conditions named above, without requiring a goal exception. The same is true for stormwater
facilities on farm land, but not on forest land, except unaltered natural systems.
Boundarv Commission
Boundary Commission policies do not prohibit the location of systems or the extension of lines
outside UGBs, but the Boundary Commission must act consistently with adopted local
comprehensive plans. "
Metro Plan
The Metro Plan provides that water and wastewater services cannot be extended outside the
UGB by the city or any special ~istrict, except to serve the Mahlon Sweet Field Airport, the
Regional Wastewater Sludge Management Facility (both of which service the entire metropolitan
area) and an existing development that poses an immediate public health or safety threat to the
citizens of the metropolitan area that can only be remedied by the extension Of the service (Metro
Plan, policy #2, page IIl-G-5).
Financing
The Capital Improvement Programs (ClPs) of the cities are adopted annually and provide
direction to the city for prioritizing infrastructure development. The CIPs include projects
located within the city limits, although the projects may be designed and planned to serve the
urbanizing area. For a detailed discussion of existing and altemative funding, refer to the draft
Existing Conditions and Alternatives Report,
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY, 0 6'tdbB'
Planner: BJ
Date Received
142 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan MAY 06' 2008
Planner: BJ
Appendix C
Statewide Planning Goal 11
OAR Chapter 660 Division 11
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY ~46 2008
'Pianner~ B~J
144
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY 062008
Planner: BJ
The Oregon Administrative Rules contain OARs filed through July 15,2000
LAND CONSERV ATlON AND DEVELOPMENT DEPARTMENT
DIVISION 11
PUBLIC FACILITIES PLANNING
660-011-0000
Purpose
The purpose of this division is to aid in achieving the requirements of Goal II , Public Facilities
and Services, OAR 660-015-0000(11), interpret Goal II requirements regarding public facilities
and services on rural lands, and implement ORS I 97.7l2(2)(e), which requires that a city or
'county shall develop and adopt a public facility plan for areas within an urban growth boundary
containing a population greater than 2,500 persons. The purpose of the plan is to help assure that
urban development in such urban growth boundaries is guided and supported by types and levels
of urban facilities and services appropriate for the needs and requirements of the urban areas to
be serviced, and that those facilities and services are provided in a timely, orderly and efficient
arrangement, as required by Goal 11. The division contains definitions relating to a public
facility plan, procedures and standards for developing, adopting, and amending such a plan, the
date for submittal of the plan to ,the Commission and standards for Department review of the
plan.
[ED. NOTE: The goal referred to or incorporated by reference in this rule is available from the
agency.]
Stat. Auth.: ORS 183 & OAR 197
Stats. Implemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84; LCDD 4-1998, f. & cert. ef. 7-28-98
660-011-0005
Definitions
(1) "Public Facilities Plan": A public facility plan is a support document or documents to a
comprehensive plan. The facility plan describes the, water, sewer and transportation facilities
which are to support the land uses designated in the appropriate acknowledged comprehensive
plans within an urban growth boundary containing a population greater than 2,500. Certain
elements of the public facility plan also shall be adopted as part of the comprehensive plan, as
specified in OAR 660-11-045.
(2) "Rough Cost Estimates"; Rough cost estimates are approximate costs expressed in current-
year (year closest to the period of public facility plan development) dollars. It is not intended that
project cost estimates be as exact as is required for budgeting purposes.
(3) "Short Term": The short term is the period from year one through year five of the facility
plan.
(4) "Long Term": The long term is the period from year six through the remainder of the
planning period.
(5) "Public Facility": A public facility includes water, sewer, and transportation facilities, but
does not include buildings, structures or equipment incidental to the direct operation of those
facilities.
(6) "Public Facility Project": A public facility project is the construction or reconstruction of a
water, sewer, or transportation facility within a public facility system that is funded or utilized by
members of the general public. '
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY 'U a~08
Planner; 8J
(7) "Public Facility Systems": Public facility systems are those facilities of a particular type that
combine to provide water, sewer or transportation services.
For purposes of this division, public facility systems are limited to the following:
(a) Water: '
(A) Sources of water;
(B) Treatment system;
(C) Storage system;
(D) Pumping system;
(E) Primary distribution system.
(b) Sanitary sewer:
(A) Treatment facilities system;
(B) Primary collection system.
(c) Storm sewer:
(A) Major drainageways (major trunk lines, streams, ditches, pump stations and retention
basins);
(B) Outfall locations.
(d) Transportation:
(A) Freeway system, if planned for in the acknowledged comprehensive plan;
(B) Arterial system;
(C) Significant collector system;
(D) Bridge system (those on the Federal Bridge Inventory);
(E) Mass transit facilities if planned for in the acknowledged comprehensive plan, including
purchase of new buses if total fleet is less than 200 buses, rail lines or transit stations associated'
with providing transit service to major transportation corridors and park and ride station;
(F) Airport facilities as identified in the current airport master plans;
(G) Bicycle paths if planned for in the acknowledged comprehensive plan.
(8) "Land Use Decisions": In accordance with ORS 197.7l2(2)(e), project timing and financing
provisions of public facility plans shall not be considered land use decisions as specified under
ORS 197.0 l5(l 0).
(9) "Urban Growth Management Agreement": ln accordance with OAR 660-003-00l0(2)(c), and
urban growth management agreement is a written statement, agreement or set of agreements
setting forth the means by which a plan for management of the unincorporated area within the
urban growth boundary will be completed and by which the urban growth boundary may be
modified (unless the same information is incorporated in other acknowledged documents). '
(l0) Other Definitions: For the purposes of this division, the definitions in ORS 197.015 shall
apply except as provided for in section (8) of this rule regarding the definition in ORS
197.015(10).
Stat. Auth.: ORS 183 & ORS 197
Stats. Implemented: ORS 197.712
Hist.: LCDC 4- I 984, f. & ef. 10-18-84
660-011-0010
The Public Facility Plan
(l) The public facility plan shall contain the following items:
(a) An inventory and general assessment of the condition of all the significant public facility
systems which support the land uses designated in the acknowledged comprehensive plan;
146
, Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY 03'2008
PlannCMFO (, ~
) 'I;(. II ;,j L..J~.J
,-
(b) A list of the significant public facility projects which are to support the land uses designated
in the acknowledged comprehensive plan. Public facility project descriptions or specifications of
these projects as necessary; " '
,(c) Rough cost estimates of eacH public facility project;
(d) A map or written description of each public facility project's general location or service area;
'(e) Policy statement(s) or urban growth management agreement identifying the provider of each
public facility system. lf there is more than one provider with the authority to provide the system
within the area covered by the p~blic facility plan, then the provider of each project shall be
designated;
(f) An estimate of when each facility project will be needed; and
(g) A discussion of the provider:'s existing funding mechanisms and the ability of these and
po~sible new mechanisms to ful)d the development of each public facility project or system.
(2) Those public facilities to be addressed in the plan shall include, but need not be limited to
those specified in OAR 660-011-0005(5). Facilities included in the public facility plan other than
those included in OAR 660-01IC0005(5) will not be reviewed'for compliance with this rule. '
(3) It is not the purpose of this division to cause duplication of or to supplant existing applicable
facility plans and programs. Wnere all or part of an acknowledged comprehensive plan, facility
master plan either of the local jurisdiction or appropriate special district, capital improvement
program, regional functional pla'n, similar plan or any combination of such plans meets all or
some of the requirements of this division, those plans, or programs may be incorporated by
reference into the public facilitY plan required by this division. Only those referenced portions of
such documents shall be consid~red to be a part of the public facility plan and shall be subject to
the administrative procedures of this division and ORS Chapter 197.
Stat. Auth.: ORS 183 & ORS 197
Stats.lmplemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0015
Responsibility for Public Facility Plan P~eparation
(l) Responsibility for the preparation, adoption and amendment of the public facility plan shall
be specified within the urban growth management agreement. If the urban groWth management
agreement does not make provision for this responsibility, the agreement shall be amended to do
so prior to the preparation of th~ public facility plan. In the case where an unincorporated area '
exists within the Portland Metropolitan Urban Growth Boundary which is not contained within
the boundary of an approved urban planning area agreement with the County, the County shall
be the r~sponsible agency for preparation of the facility plan for that unincorporated area. The '
urban growth management agreement shall be submitted with the public facility plan as specified
in OAR 660-011-0040.
(2) The jurisdiction responsible 'for the preparation of the public facility plan shall provide for the
coordination of such preparation with the city, county, special districts and, as necessary, state
, and federal agencies and private providers of public facilities. The Metropolitan Service District
is responsible for public facility plans, coordination within the District consistent with ORS
197.190 and 268.390.
(3) Special districts, including l?ort districts, shall assist in the development of the public facility
plan for those facilities they provide. Special districts may object to that portion of the facilities
plan adopted as part of the comprehensive plan during review by the Commission only ifthey
Date Received
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
MAY O.fli200B
Planner: BJ,
have completed a special district agreement as specified under ORS 197.185 and 197.254(3) and
(4) and participated in the development of such portion of the public facility plan.
(4) Those state agencies providing funding for or making expenditures on public.facility systems
shall participate in the development of the public facility plan in accordance with their state
agency coordination agreement under ORS 197.180 and 197.712(2)(f).
Stat. Auth.: ORS 183 & ORS 197
Stats. Implemented: ORS 197.7i2 .
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0020
Public Facility Inventory and Determination of Future Facility Projects
(1) The public facility plan shall include an inventory of significant public facility systems.
Where the acknowledged comprehensive plan, background document or one or more of the plans
or programs listed in OAR 660-011-0010(3) contains such an inventory, that inventory may be
incorporated by reference. The inventory shall include:
(a) Mapped location of the facility or service area;
(b) Facility capacity or size; and
(c) General assessment of condition of the facility (e.g., very good, good, fair, poor, very poor).
(2) The public facility plan shall identify significant public facility projects which are to support
the land uses designated in the acknowledged comprehensive plan. The public facility plan shall
list the title of the project and describe each public facility project in terms of the type offacility,
service area, and facility capacity.
(3) Project descriptions within the facility plan may require modifications based on subsequent
environmental impact studies, design studies, facility master plans, capital improvement
programs, or site availability. The public facility plan should anticipate these changes as
specified in OAR 660-011-0045.
Stat. Auth.: ORS ] 83 & 0RS 197
Stats. Implemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0025
Timing of Required Public Facilities
(1) The public facilities plan shall include a general estimate of the timing for the planned public
facility projects. This timing component of the public facilities plan can be met in several ways
depending on whether the project is anticipated in the short term or long term. The timing of
. .
projects may be related directly to population growth, e.g., the expansion or new construction of
water treatment facilities. Other facility projects can be related to a measure of the facility's
service level being met or exce~ded, e.g., a major arterial or intersection reaching a maximum
. vehicle-per-day standard. Development of other projects may be more long term and tied neither
to specific population levels no,r measures of service levels, e.g., sewer projects to correct
infiltration and inflow problems. These projects can take place over a long period of time and
may be tied to the availability oflong-term funding. The timing of projects may also be tied to
specific years.
(2) Given the different methods used to estimate the timing of public facilities, the public facility
plan shall identify projects as o:~curring in either the short term or long term, based on those
factors which are related to project development. For those projects designated for development
in the short term, the public facility plan shall identify an approximate year for development. For
those projects designated for development over the long term, the public faciliU~tlf1!leceived
148 Eugene-Springfield Metropolitan'Area Public Facilities and Services Plan MAY 06'2008
Planner: BJ
provide a general estimate as to;when the need for project development would exist, e.g.,
population level, service level s!Bndards, etc. Timing provisions for public facility projects shall
be consistent with the acknowledged comprehensive plan's projected growth estimates, The
public facility plan shall consid~r the relationships between facilities in providing for
development.
(3) Anticipated timing provisions for public facilities are not considered land use decisions as
specified in ORS 1 97.712(2)(e), and, therefore, cannot be the basis of appeal under ORS
197.610(1) and (2) or 197.835(4),
Stat. Auth.: ORS 183 & ORS 197
Stats, Implemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0030
Location of Public Facility Projects
(I) The public facility plan shall identify the general location of the public facility project in
specificity appropriate for the facility. Locations of projects anticipated to be carried out in the
short term can be specified more precisely than the locations of projects anticipated for '
development in the long term.
(2) Anticipated locations for public facilities may require modifications based on subsequent
environmental impact studies, design studies, facility master plans, capital improvement
programs, or land availability. The public facility plan should anticipate those changes as
r .
specified in OAR 660-01 1-0045.
Stat. Auth.: ORS 183 & ORS 197 ,
Stats.lmplemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0035
Determination of Rough Cost,Estimates for Public Facility Projects and Local Review of
Funding Mechanisms for Public Facility Systems
(I) The public facility plan shall include rough cost estimates for those sewer, water, and
transportation public facility projects identified in the facility plan. The intent of these rough cost
estimates is to:
(a) Provide an estimate of the fiscal requirements to support the land use designations in the
acknowledged comprehensive 'plan; and '
(b) For use by the facility provider in reviewing the provider's existing funding mechanisms
(e.g., general funds, general obligation and revenue bonds, local improvement district, system
development charges, etc.) and 'possible alternative funding mechanisms. In addition to including
rough cost estimates for each project, the facility plan shall include a discussion of the provider's
existing funding mechanisms and the ability of these and possible new mechanisms to fund the
development of each public facility project or system. These funding mechanisms may also be
described in terms of general guidelmes or local policies.
(2) Anticipated financing provisions are not considered land use decisions as specified in ORS
197.7l2(2)(e) and, therefore, cannot be the basis of appeal under ORS 197.610(1) and (2) or
197.835(4).
Stat. Auth,: ORS 183 & ORS 197
Stats. Implemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0040
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Date Received
MAY, 0 64~008
Planner: BJ
Date of Submittal of Public Facility Plans
The public facility plan shall be completed, adopted, and submitted by the time of the
responsible jurisdiction's periodi,c review. The public facility plan, shall be reviewed under OAR
Chapter 660, Division 25, "Periodic Review" with the jurisdiction's comprehensive plan and land
use regulations. Portions of public facility plans adopted as part of comprehensive plans prior to
the responsible jurisdiction's periodic review will be reviewed pursuant to OAR Chapter 660,
Division 18, "Post Acknowledgment Procedures."
Stat. Auth.: ORS 183 & ORS 197
Stats.lmplemented: ORS 197.712
Hist.: LCDC 4- I 984, f. & ef. 10-18-84
660-011-0045
Adoption and Amendment Procedures for Public Facility Plans
(I) The governing body of the city or county responsible for development of the public facility
plan shall adopt the plan as a supporting document to the jurisdiction's comprehensive plan and
shall also adopt as part of the comprehensive plan:
(a) The list of public facility project titles, excluding (if the jurisdiction so chooses) the
descriptions or specifications of those projects;
(b) A map or written description of the public facility projects' locations or service areas as
specified in sections (2) and (3)ofthis rule; and
(c) The policy(ies) or urban growth management agreement designating the provider of each
public facility system. lfthere is more than one provider with the authority to provide the system
within the area covered by the public facility plan, then the provider of each project shall be
designated.
(2) Certain public facility project descriptions, location or service area designations will '
necessarily change as a result of subsequent design studies, capital improvement programs,
environmental impact studies, and changes in potentiai sources offunding. It is not the intent of
this division to:
(a) Either prohibit projects not included in the public facility plans for which unanticipated
funding has been obtained;
(b) Preclude project specification and location decisions made according to the National
Environmental Policy Act; or
(c) Subject administrative and technical changes to the facility plan to ORS 197.610(1) and (2) or
197.835(4).
(3) The public facility plan may allow for the following modifications to projects without
amendment to the public facility plan:
(a) Administrative changes are those modifications to a public facility project'which are minor in
nature and do not significantly impact the project's general description, location, sizing, capacity,
or other general characteristic of the project;
(b) Technical and environmental changes are those modifications to a public facility project
which are made pursuant to "final engineering" on a project or those that result from the findings
of an Environmental Assessment or Environmental Impact Statement conducted under
regulations implementing the procedural provisions of the National Environmental Policy Act of
1969 (40 CFR Parts 1500-1508)or any federal or State of Oregon agency project development
regulations consistent with that Act and its regulations.
(c) Public facility project changes made pursuant to subsection (3)(b) ofthis rule are subject to
the administrative procedures and review and appeal provisions of the regulations Rntr~IliIJll)t!l.e . d
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study (40 CFR Parts 1500-1508 or similar regulations) and are not subject to the administrative
procedures orreview or appeal provisions of ORS Chapter 197, or OAR Chapter 660 Division
18.
(4) Land use amendments are those modifications or amendments to the list, location or provider
of, public facility projects, which significantly impact a public facility project identified in the
comprehensive plan and which do not qualify under subsection (3)(a) or (b) of this rule.
Amendments made pursuant to this subsection are subject to the administrative procedures and
review and appeal provisions accorded "land use decisions" in ORS Chapter 197 and those set
forth in OAR Chapter 660 Division 18.
Stat. Auth.: ORS 183 & ORS 197
Stats. Implemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0050
Standards for Review by the Department
The Department of Land Conservation and Development shall evaluate the following, as further
defined in this division, when reviewing public facility plans submitted under this division:
(I) Those items as specified in OAR 660-011-0010(1);
(2) Whether the plan contains a copy of all agreements required under OAR 660~011-0010 and
660-011-0015; and
(3) Whether the public facility plan is consistent with the acknowledged comprehensive plan.
Stat. Auth.: ORS 183 & ORS 197
Stats.lmplemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0060
Sewer Service to Rural Lands
(1) As used in this rule, unless the context requires otherwise:
(a) "Establishment ofa sewer system" means the creation ofa new sewage system, including
systems provided by public or private entities;
(b) "Extension of a Sewer System" shall have the same meaning as stated in Goal 11;
(c) "No practicable alternative to a sewer system" means a determination by DEQ or the Oregon
Health Division, pursuant to criteria in OAR 340, Division 071, and other applicable rules and
laws, that an existing public health hazard cannot be adequately abated by the repair or
maintenance of existing sewer systems or on-site systems or by the installation of new on-site
systems as defined in OAR 340-071-0100;
(d) "Public health hazard" means a condition whereby it is probable that the public is exposed to
disease-caused physical suffering or illness due to the presence of inadequately treated sewage;
(e) "Sewage" means the water-carried human, animal, vegetable, or industrial waste from
residences, buildings, industrial establishments or other places, together with such ground water
infiltration and surface water as may be present;
(t) "Sewer system" means a system that serves more than one lot or parcel, or more than one
condominium unit or more than one unit within a planned unit development, and includes
pipelines or conduits, pump stations, force mains, and all other structures, devices, appurtenances
and facilities used for treating or disposing of sewage or for collecting or conducting sewage to
an ultimate point for treatment and disposal. The following are not considered a "sewer system"
, for purposes of this rule:
(A) A system provided solely for the collection, transfer and/or disposal of storm water runoff;
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(B) A system provided solely for the collection, transfer and/or disposal of animal waste from a
farm use as defined in ORS 215:303.
(2) Except as provided in sections (3) and (4) of this rule, and consistent with Goal 11, a local
government shall not allow: '
(a) The establishment of new sewer systems outside urban growth boundaries or unincorporated
community boundaries;
(b) The extension of sewer lines from within urban growth boundaries or unincorporated
community boundaries in order to serve uses on land outside those boundaries;
(c) The extension of sewer systems that currently serve land outside urban growth boundaries
and unincorporated community boundaries in order to serve uses that are outside such
boundaries and are not served by the system on the date of this rule.
(3) Components of a sewer system that serve lands inside an l!rban growth boundary (UGB) may
be placed on lands outside the boundary provided that the conditions in subsections (a) and (b) of
this section are met, as follows: '
(a) Such placement is necessary to:
(A) Serve lands inside the UGB more efficiently by traversing lands outside the boundary;
(8) Serve lands inside a nearby UGB or unincorporated community;
(C) Connect to components of the sewer system lawfully located on rural lands, such as outfall
or treatment facilities; or
(D) Transport leachate from a landfill on rural land to a sewer system inside a UGB; and
(b) The local government.
(A) Adopts land use regulation~ to ensure the sewer system shall not serve land outside urban
growth boundaries or unincorporated community boundaries, except as authorized under section
(4) of this rule; and
(B) Determines that the system satisfies ORS 2 15.296(1) or (2) to protect farm and forest
practices, except for systems located in the subsurface of public roads and highways along the
public right of way.
(4) A local government may allow the establishment of a new sewer system, or the extension ,of
an existing sewer system, to serve land outside urban growth boundaries and unincorporated
community boundaries in order to mitigate a public health hazard, provided that the conditions in
subsections (a) and (b) of this section are met, as follows:
(a) The Oregon Department of Environmental Quality (DEQ) or the Oregon Health Division
initially:
(A) Determines that a public health hazard exists in the area;
(B) Determines that the health hazard is caused by sewage from development that existed in the
area on the date of this rule;
(C) Describes the physical location of the identified sources ofthe sewage contributing to the
health hazard; and '
(D) Determines that there is no'practicable alternative to a sewer system in order to abate the
public health hazard; and
(b) The local government, in response to the determination in subsection (a) of this section, and
based on recommendations by DEQ and the Oregon Health Division where appropriate:
(A) Determines the type of sewer system and service to be provided, pursuant to section (5) of
this rule; ,
(B) Determines the boundaries of the sewer system service area, pursuant to section (6) of this
rule;
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(C) Adopts land use regulations that ensure the sewer system is designed and constructed so that
its capacity does not exceed the,minimum necessary to serve the area within the boundaries
described under paragraph (B) of this subsection, except for urban reserve areas as provided
under OAR 660-021-0040(6);
(D) Adopts 'land use regulations to prohibit the sewer system from serving any uses other than
those existing or allowed in the identified service area on the date the sewer system is approved;
(E) Adopts plan and zone amendments to ensure that only rural land uses are allowed on rural
lands in the area to be served by the sewer system, consistent with Goal 14 and OAR 660-004-
, .
00 I 8, unless a Goal 14 exceptIon has been acknowledged;
(F) Ensures that land use regulations do not authorize a higher density of residential development
than would be authorized without the presence of the sewer system; and
(G) Determines that the system satisfies ORS 215.296(1) or (2) to protect farm and forest
practices, except for systems located in the subsurface of public roads and highways along the
public right of way.
(5) Where the Department of Environmental Quality (DEQ) determines that there is no
practicable altemative to a sewer system, the local government, based on recommendations from
DEQ, shall determine the most practicable sewer system to abate the health hazard considering
the following: '
(a) The system must be sufficient to abate the public health hazard pursuant to DEQ
requirements applicable to such systems; and
(b) New or expanded sewer systems serving only the health hazard area shall be generally
preferred over the extension of a sewer system from an urban growth boundary. However, if the
health hazard area is within the service area of a sanitary authority or district, the sewer' system
operated by the authority or district, if available and sufficient, shall be preferred over other
sewer system options.
(6) The local government, based on recommendations from DEQ and, where appropriate, the
Oregon Health Division, shall determine the area to be served by a sewer system necessary to
abate a health hazard. The area shall include only the following:
(a) Lots and parcels that contain the identified sources of the sewage contributing to the health
hazard;
(b) Lots and parcels that are surrounded by or abut the parcels described in subsection (a) ofthis
section, provided the local government demonstrates that, due to soils, insufficient lot size, or
other conditions, there is a reasonably clear probability that onsite systems installed to serve uses
on such lots or parcels will fail and further contribute to the health hazard.
(7) The local government or agency responsible for the determinations pursuant to sections (4)
through (6) of this rule shall provide notice to all affected local governments and special districts
regarding opportunities to participate in such determinations.
(8) APplicable provisions of this rule, rather than conflicting provisions of local acknowledged
zoning ordinances, shall immediately apply to local land use decisions filed subsequent to the
effective date of this rule.
[ED. NOTE: The goals referred to or incorporated by reference in this rule are available from the
agency.]
Stat. Auth.: ORS 183 & ORS 197
Stats. Implemented: ORS 197,712
Hist.: LCDD 4-1998, f. & cert. ef. 7-28-98
660-011-0065
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Date ~eceived
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Plann~~'lf: ldJ
Water Service to Rural Lands,; ,
(1) As used in this rule, unless the context requires otherwise:
(a) "Establishment" means the creation of a new water system and all associated physical
components, including systems provided by public or private entities;
(b) "Extension of a water system" means the extension of a pipe, conduit, pipeline, main, or other
physical component from or to an existing water system in order to provide service to a use that
was not served by the system on the applicable date of this rule, regardless of whether the use is
inside the service boundaries ofthe public or private service provider.
(c) "Water system" shall have the same meaning as provided in Goal 11, and includes all pipe,
conduit, pipeline, mains, or other physical components of such a system.
(2) Consistent with Goal I I, local land use regulations applicable to lands that are outside urban
growth boundaries and unincorporated community boundaries shall not: '
(a) Allow an increase in a base density in a residential zone due to the availability of service
from a water system; ,
(b) Allow a higher density for residential development served by a water system than would be
authorized without such service; or
(c) Allow an increase in the allowable density of residential development due to the presence,
establishment, or extension of a water system.
(3) Applicable provisions of this rule, rather than conflicting provisions of local acknowledged
zoning ordinances, shall immediately apply to local land use decisions filed subsequent to the
effective date of this rule.
[ED. NOTE: The goal referred to or incorporated by reference in this rule is available from the
agency. ]
Stat. Auth.: ORS 183 & ORS 197
Stats. Implemented: ORS 197.712
Hist.: LCDO 4-1998, f. & cert. ef. 7-28-98
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