HomeMy WebLinkAboutOrdinance 5992 11/05/2001
(e
ORDINANCE NO. ')997
(General)
AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA
GENERAL PLAN (METRO PLAN) TO ADOPT A NEW PUBLIC FACILITIES AND SER-
VICES ELEMENT, PLANNED PUBLIC FACILITIES PROJECT LISTS AND MAPS AND
RELATED CHANGES TO THE PLAN TEXT; ADOPTING A NEW EUGENE-SPRINGFIELD
METROPOLITAN AREA PUBLIC FACILITIES AND SERVICES PLAN AS A REFINE-
MENT PLAN TO THE METRO PLAN; ADOPTING A SEVERABILITY CLAUSE; AND
PROVIDING AN EFFECTIVE DATE.
WHEREAS, Chapter IV of the Eugene-Springfield Metropolitan Area General Plan
(Metro Plan) sets forth procedures for amendment of the Metro Plan, which for the City of
Springfield are implemented by the provisions of Article 7 of the Springfield Development Code;
and
WHEREAS, the Metro Plan identifies the Eugene-Springfield Metropolitan Area Public
Facilities Plan (Public Facilities Plan) as a refinement plan which forms the basis for the Public
Utilities, Services and Facilities Element of the Metro Plan and guides the provision of public
facilities and services in the metropolitan area; and
WHEREAS, the Public Facilities Plan serves the goals, objectives and policies of the
Metro Plan by addressing the provision of public facilities and services within the urban growth
boundary (UGB), services to areas outside the UGB, locating and managing public facilities out-
side the UGB, and financing public facilities; and
.
WHEREAS, the current Eugene-Springfield Metropolitan Area Public Facilities Plan,
adopted in 1987 and amended in 1992 and 2000, is in need of modification to reflect changes in
State law and local public facilities and services needs; and
WHEREAS, following a joint public hearing with the Eugene and Springfield Planning
Commissions on October 24,2000, the Springfield Planning Commission recommended the draft
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan (Public Facilities and
Services Plan) and Metro Plan amendments to the Springfield City Council by action taken at a
public meeting held by the Planning Commission on December 19, 2000; and
WHEREAS, the Springfield City Council has conducted a public hearing on April 4,
2001 and having considered the matter in regular session on July 16,2001, is now ready to take
action based upon the above recommendations and the evidence and testimony already in the re-
cord as well as the evidence and testimony presented at the public hearing held in the matter of
adopting the Public Facilities and Services Plan and amending the Metro Plan.
NOW THEREF"ORE, THE CITY OF SPRINGFIELD ORDAINS AS FOLLOWS:
.
Section 1. The 200 I Eugene-Springfield Metropolitan Area Public Facilities and Ser-
vices Plan (Public Facilities and Services Plan), as amended by Addenda #1, #2, #3, #4
and #5, and set forth in Exhibit A attached and incorporated herein, is adopted as a re-
finement plan to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan)
and the 1987 Eugene-Springfield Metropolitan Area Public Facilities Plan Technical Re-
port is superseded and replaced by adoption of the 2001 Public Facilities and Services
Plan.
ORDINANCE NO. 5992
PAGE 1 OF 2
.
.
.
Section 2. The Public Utilities, Services, and Facilities Element (Section III-G) of the
Metro Plan is removed, superseded and replaced by a new Public Facilities and Services
Element (Section III -G), as set forth in Part I of Exhibit B attached and incorporated
herein which is hereby adopted.
Section 3. Public Facility Plan Project Lists and Maps for Water, Storm Sewers, Sani-
tary Sewers, and Transportation in Appendix A of the Metro Plan and the Electrical Sub-
stations and Transmission Lines in Appendix D of the Metro Plan are removed, super-
seded and replaced by the Project Lists and Planned Facilities Maps for Water, Waste-
water, Stormwater, and Electrical Facilities in Chapter II of the Public Facilities and
Services Plan, as amended and as set forth in Part II of Exhibit B attached and incorpo-
rated herein which are hereby adopted. Project timing and estimated costs are not adopted
as policy.
Section 4. Additions and modifications to terms in the Glossary (Section V) of the Metro
Plan, and amendments to other statements of the Metro Plan for purposes of consistency
with adoption of a new Public Facilities and Services Element, as set forth in Parts III
and IV of Exhibit B attached and incorporated herein are adopted.
Section 5. If any section, subsection, sentence, clause, phrase or portion of this Ordi-
nance is for any reason held invalid or unconstitutional by a court of competent jurisdic-
tion, such portion shall be deemed a separate, distinct and independent provision and
such holding shall not affect the validity of the remaining portions hereof.
Section 6. Therefore this ordinance shall take effect on the date the last governing body
acts to approve the actions specified in Sections 1, 2, 3, and 4 of this ordinance as speci-
fied in Article 7.100 (4) of the Springfield Development Code.
FURTHER, although not part of this Ordinance, the Springfield City Council adopts the
Legislative Findings set forth in the attached Exhibit "C," which findings are supported by the
April 1999 Technical Background Report: Existing Conditions and Alternatives which are incor-
porated herein and made part of the Technical Supplement to the Metro Plan by this reference ,in
support of this action.
ADOPTED by the Common Council of the City of Springfield this 5 th day of
November, 2001 by a vote of ~ for and ~ against.
APPROVED by the Mayor of the City of Springfield this----5..t.hday of Novf'mher
, 2001.
REVIEWED & APPROVED
AS TO FORM
-'J:J-I-k~-2oQ \
DATEj C')~..(t\"",.J L~p,~
OFFICE OF CITY ATTORNEY
w~ft<
Mayor... U
ATTEST:
~~
City Recorder
ORDINANCE NO. 5992
PAGE 2 OF 2
-.
J
Proj ect
Number
47
48
49
.
50
51
52
53
54
55
56
57
58
Exhibit A To Ordinance No.
Addenda to the Draft Eugene-Springfield Metropolitan Area
Public Facilities and Services Plan
Addendum #1
rovement Pro. ects
ade
Ci
Proj ect
Number
47 596 2000 - 2006
48 145 2000 - 2006
49 40 2000 - 2006
50 65 2007 - 2011
51 rade 100 2007 - 2011
52 97 2007 - 2011
53 TBD 2007 - 2011
54 TBD 2007 - 2011
55 TBD 2007 - 2011
56 TBD 2007 - 2011
. 57 TBD 2007 - 2012
58 TBD 2012 - 2020
Exhibit A - 1
Exhibit A to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan andMetro Plan Amendments
\
Page lof7
.
!
.
.
Addendum #2
The following changes have been made to Planned Electrical Facilities Map 4:
1. Project # 1 identified as a Eugene Water & Electric BoardJEWEB) facility;
2. Project # 8 identified as a EWEB facility.
3. Clarification on the map key: "E" to symbolize an EWEB facility, "8" to symbolize a
Springfield Utility Board (SUB) facility.
Exhibit A - 2
Exhibit A to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 2 of 7
.
.
.
Addendum #3
This addendum presents changes to some of the Metro Plan policies recommended in Chapter II
of the draft Eugene-Springfield Public Facilities and Services Plan. These changes were
recommended by the Eugene, Springfield, and Lane County Planning Commissions and elected
.officials in response to in response to deliberations and public testimony submitted during the
public hearing process. Proposed additions are in bold, deletions are in strike out.
The following changes are proposed to policies recommended on page 11 of the draft
Eugene-Springfield Public Facilities and Services Plan:
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 1,2 and 3, requires amending the Pubic Facilities and Services Plan
and the Metro Plan, except for the following:
1) Public facility projects Rot included in the Public Facitities and SC11Jices Plan
project lists or maps for v,TI1ch unanticipated funding has been obtained; or
1~) 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
34) 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.
The following changes are proposed to policies recommended on page 15 of the draft
Eugene-Springfield Public Facilities and Services Plan:
G.17 Include measures in local land development regulations that minimize the amount of
impervious surface in new development in a manner that reduces stoimwater pollution,
reduces the negative affects 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
limit prevent the filling of natural drainage channels, rcduce thc negati'/e effects of
filling in floodplains, and except as necessary to ensure necessary public operations and
Exhibit A-3
Exhibit A to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 3 of7
.
("
.
.
'i.
maintenance of these channels in a manner that preserves and/or enhances floodwater
conveyance capacity and biological function."l
G.19
Maintain flood storage capacity within the floodplain, to the maximum extent practical,
through measures that may include reducing impervious surface in the floodplain and
adjacent are~s~
The following changes are proposed to policies recommended on pages 20-21 of the draft
Eugene-Springfield Public Facilities and Services. Plan:
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, as needed and consistent with state law, to appropriately designate
land for urban facilities located outside the Plan boundary on the Public Facilities and
Services Plan Planned Facilities Maps.
Exhibit A-4
iThe wording of this policy reflects the amendments contained in Addendum #4. Proposed
changes to the policy from the version recommended by the planning commissions are shown in
bold and strike-out.
Exhibit A to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 4 of7
-.
.
.
Addendum #4
This addendum presents changes to the text of the draft Eugene-Springfield Public Facilities and
Services Plan, including some changes to the Metro Plan policies recommended in Chapter II. .
These changes were recommended by the elected officials of Eugene, Springfield, and Lane
County in response to deliberations and to public testimony submitted during the joint elected
. official public hearing process. Proposed additions are in bold, deletions are in strike out.
L The following changes are proposed to text in the last sentence on page 71 and the top of
page 72 of the draft Eugene-Springfield Public Faci/itiesand Services Plan:
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. This study may result in changes to the existing Urban
Reserve designations. At the time those Metro Plan diagram amendments are
adopted, .^illy such changes may necessitate any amendments to this refinement plan or
to aHEi Metro Plan policies to reflect updated facility service needs and projects will be .
adopted concurrently with the diagram amendments to remove urban reserves.
2.
Reword Policy G.14 Related to Stormwater, as follows..
G.14 "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."
3. Reword Policy G.18 Related to Stormwater, as follows.
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, reduee the
negative effects of filling in floodplains, and except as necessary to. ensure
necessary public operations and maintenance of these channels in a manner that
. preserves and/or enhances floodwater conveyance capacity and biological
function. "
4, Reword Policy G.29 as follows.
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 Pkm, or the Metro Plan, as needed and
consistent with state law, to appropriately designate land for urban facilities
located outside the Urban Growth Boundary or the Plan boundary. ~
f1WZirf:~?~te.r11~mr;&m~~mo~f_!f~_m
Exhibit A-5
Exhibit A to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan andMetro Plan Amendments
Page 5 of7
..
.
.
5.
Delete Growth Management Policy #2
Delete proposed Growth Management Policy #2, as follows from the Public Facilities
and Services Plan text and the adopting ordinance (deletions in strike-out): .
2. "Floodplain delineations made by loea! governments, where available, '..vill be
used in place of, or as an update to, FEM,.^.. maps to determine the location of the
UGB and to guide land use decisions. "
6. Add Metro Plan Glossary Definition
Amend page 24 of the Public Facilities and Services Plan to add the following
amendment to the Metro Plan Glossary:
"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 EWEB.2
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 of the Metro Plan are described in the Project
Lists and their general location is identified in the Planned Facilities Maps in.
Chapter IT of the Eugene-Springfield Metropolitan Area Public Facilities and Services
Plan. "
Exhibit A-6
2 This definition will be clarified in Map 1: Planned Water Facilities in the Public Facilities and
Services Plan.
Exhibit A to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan andMetro Plan Amendments
Page 6 of7
.
.
.
Addendum #5
Amend Map 4: Planned Electrical Facilities by adding the following, as ,shown on the attached
map:
o Two existing Eugene Water & Electric Board (EWEB) and one existing Springfield Utility
Board (SUB) electrical generation facilities.
o A new symbol to the map legend: "Existing Electrical Generation Facility"
Exhibit A - 7
Exhibit A to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 7 of 7
.
.
.
Exhibit B To Ordinance No.
Part I:
Chapter ill-G, Public Utilities, Services, and Facilities Element of the Eugene-Springfield
Metropolitan Area General Plan is replaced with a new. Chapter ill-G to read as follows:
Chapter III-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 th~
population of the Eugene-Springfield area increases and land development pattems.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.
The policies in this element complement Metro Plan Chapter II-A: Fundamental
Principles and Chapter IJ..: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 11, "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 atthe 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.
. Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 1 of31
Exhibit B-1
.
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 11, the Public
Facilities andServices Plan identifies and shows the generallocation1 of the water,
wastewater,. and stormwater projects needed to serve land within the urban growth
boundary.2 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.
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 Stormwater
o Electricity
.
1. The exact location of the projects shown on the Public Facilities and Services Plan planned facilities maps is
detennined through local processes.
2. 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 ID-F and in the Eugene-Springfield Transportation
System Plan (TransPlan).
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 2 of31
Exhibit B-2
.
.
.
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
o Financing
The applicable findings and policies are contained under each of these topic headings,
below.
The policies listed provide direction for public and private developmental and prograri1
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
1. 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
Findilli!S
1. Urban expansion within the urban growth boundary is accomplished through in-fill,
redevelopment, and annexation of territory which 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 extended, minimizing the public cost of
extending urban facilities.
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
ExhibitB to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 3001
Exhibit B-3
.
.
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 qnd Services Plan finds thatalmost 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-Natronareas in east Springfield.
6. OAR 660-011-005 defines projects that must be included in public facility plan
project lists for water, wastewater, and stormwater. 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 (water, wastewater, fire,
parks, open space and recreation, and streets, roads and mass transit) will be
provided within the urban growth boundary.
.
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.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 4001
Exhibit 8-4
.
.
.
9. Duplication of services prevents the tn6st 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, and nodal-development."
Policies
G.1 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 1,2 and 3, requires amending the Pubic
Facilities and Services Plan and the Metro Plan, except for the following:-
1) Modifications to a public facility project which are minor in nature and' do not
significantly impact the projecf sgeneral 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.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 5 of31
Exhibit 8-5
.
.
.
GA 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 services. .
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
Findings
11. 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 imd 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
withinthe urban growth boundary.
G.I0 Continue to take positive steps to protect groundwater supplies. The cities,
county, and other service providers shall manage land use and public facilities for
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 6 of31
Exhibit 8-6
.
.
.
G.11
G.12
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.
Ensure that water main extensions within the urban growth boundary include
adequate consideration of fire flows.
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 DevelopmentWithin the Urban Growth Boundary:
Stormwater
Findim!:s
12.
Historically, stormwater systems in Eugene and Springfield were designed
primarily to control floods. The 1987 re-authorization ofthe.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 stormwater 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 which 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
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 7 001
Exhibit 8 - 7
.
.
.
Policies
development of Total Maximum Daily Loads (TMDLs) for these pollutants, and
an allocation to point and non-point sources.
16.
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 andWillamette Rivers. The
decline in the Chinook Salmon has been attributed to such factors as destruction of
habitat through channelization and revetment of river banks, non-point source
pollution, alterations of natural hydro graph by increased impervious surfaces in 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 flows
during peak storm events, less opportunity for recharging of the aquifer, and a
decrease in water quality.
19.
Stormwater 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.
. G.B Improve surface and ground water quality and quantity in the metropolitan area by
developing regulations or instituting programs for stormwater to:
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Servic'es Plan and Metro Plan Amendments
Page 8.of31
Exhibit 8-8
.
.
.
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;
d. Increase storage and retention and natural filtration of storm runoff to lower
and delay peak storm flows and to settle out pollutants prior to discharge into
regulated waterways;
e. Require on-site controls and development standards, as practical, to reduce
off-site impacts from stormwater 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.14 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.16 . 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
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 90f3!
Exhibit 8-9
.
.
.
pollution, reduces the negative affects 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 that preserves
and/or enhances floodwater conveyance capacity and biological function.
G.19
Maintain 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.
Services to Development Within the Urban Growth Boundary:
Electricity
Findim.!s
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.
Services to Development Within the Urban Growth Boundary:
Schools
Findines
23. ORS 195.110 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. .
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan andMetro Plan Amendments
Page 10 of31
Exhibit B - 10
.
24.
ORS 197.296(4)(a) states that when the urban growth boundary is amended to
provide needed housing, "As part of this 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. Enrollment projections for the five public school districts in the metropolitan area
and the University of Oregon and Lane Community College (LeC) are not
consistent. Bethel 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 the willingness
of districts to allow out-of-district transfers and to adjust district boundaries.
Adjustments in district boundaries may be feasible where there is no net loss or
gain in student enrollments between districts.
.
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 not always respect school district boundaries. For
example, natural cycles of growth and neighborhood maturation result in uneven
geographic growth patterns in the metropolitari 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 buHdings 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.
.
Exhibit B to Adopting OrdinanCe for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments .
Page 11 of 31
Exhibit 8-11
.
.
.
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.21 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;
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.
Exhibit B to Adopting Ordinancefor the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 12 of31
Exhibit 8 -12
.
.
.
Services to Development Within the Urban Growth Boundary:
Solid Waste
Findin2"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 Boundary
Findin2"s
31.
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 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:
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 specified in
Statewide Planning Goal 2. .
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 13 of31
Exhibit 8 - 13
.
.
.
Policies
G.25 Wastewater and water service shall not be 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 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 within the Eugene-Springfield urban growth
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. 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 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.
Locating and Managing Public Facilities Outside the
Urban Growth Boundary
Findin2's
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
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 14 of31
Exhibit B -14
.
.
.
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 localjurisdictions
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 fann 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-or-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 MetroPlan, as needed and consistent with state
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 outfa11s
outside the Springfield portion of the urban growth boundary.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments .
Page 15001
Exhibit B - 15
.
.
.
G.31 Measures to protect, enhance, or alter Class F Streams outside the urban growth
boundary, within the PIan boundary shall, at a. minimum, be consistent with Lane
County's riparian standards.
G.32 New schools within thePIan boundary shall be built inside the urban growth
boundary.
Financing
Findin2S
39. ORS 197.712(2)(e) states that the project timing and financing provisions of public
facility plans shall not be considered land. use decisions.
40. ORS 223.297 and ORS 223.229 (1) do not permit the collection ofIocal 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 unsuccessfu1.
41.
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 Califomiatimber 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.
Policies
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 16 of31
Exhibit B -16
.
.
.
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 affected jurisdiction(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 stormwater service.
G.3 9 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.
PARTll:
Appendix A of the Metro Plan, Public Facility Plan Project Lists and Maps for Water, Storm
Sewers, Sanitary Sewers, and Transportation and the Electrical Substations and Transmission
Lines in Appendix D of the Metro Plan are removed and replaced by the following Project Lists
and attached Planned Facilities Maps for Water, Wastewater, Stormwater, and Electrical
Facilities. These lists and maps will be located in Chapter II of the 2001 Public Facilities and
Services Plan.
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-twenty years, due to the constraints
described in Chapter IV of the 2001 Public Facilities and Servic.es Plan.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 17 of 31
Exhibit B -17
. Planned Water System Improvements
Planned short-term and long-term water system improvement projects are listed in tables 1 and 2.
The general location of these facilities is shown in Map 1: Planned Water Facilities.
Table 1.
Eugene Water & Electric Board (EWEB) Water System Improvement Projects
107
108
109
110
218
219
220
221
222
. 223
224
225
226
227
228
229
230
231 station
232
233
234
235
236
237
Table 2.
Springfield Utility Board (SUB) Water System Improvement Projects
.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan andMetro Plan Amendments
Page 18001
Exhibit B -18
.
.
.
Short-term
101 Install 24-inch line along 1-105
102 Insta1ll6-inch line to Glenwood .
103 Install 16-inch line along 32m! Street
104 Add well(s) in existing Thurston well field
105 Add well at 16th and Q Street ..
106 Install new treatment at Thurston .
107 Add well(s) near Thurston Wellfield
108 Instal112, 16, and 24-inch lines along Booth Kelly Road into the Natron Area
109 Install new source, Willamette Wellfield .
LanK-term
202 Install16-to lO-inch line in SP railroad right-of-way
203 Install 12 and l6-inch line along Thurston Road, Main Street, and in South Hills,
to supply new development
204 Pump station(s) to serve upper levels
205 Install16-inch line on SP railroad right-of-way south to Hayden Bridge Way
(RWD)
209 Add upper level reservoir(s): (3m: 4th, 5th level)
211 Install16-inch line along Main Street
212 Add wel1(s) near 31 st and Marcela Rd.
214 . Add wells near Interstate-5 and Game Farm Road North.
215 Add wells in N atron area
216 Install12-inch line, Thurston to Main Street
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 19 of31
Exhibit B -19
. Planned Wastewater System Improvements
Planned short-term 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
100
101
102
103
200
201
Table 4.
. City of Springfield Wastewater System ImprovementProjects
104
105
1~ a~
202
203
Planned Stormwater 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.
.
Exhibit B toAdopting Ordinance for the Eugene-Springfield Me tropolitanA rea Public
Facilities and Services Plan and Metro Plan Amendments
Page 20 of31
ExhibitB-20
.
1
2
3
4
5
6
7
8
9
10
11
12
. 13
14
15
16
17
18
19
20
21
22
24
25
26
27
28
29
30
.
Farm Roads
stem Plan
Exhibit B toAdopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan andMetro Plan Amendments
Page 21 of 31
Exhibit 8-21
.
.
Table 5. City ofEu~ene Stormwater System Improvement Projects (Continued
31 Morse Ranch Park Pipe Improvements
32 Option B- Laurelwood Flood Control Facilities and Pipe
Improvements
33 . Option B- Mt. Cavalry Pipe Improvements
34 Mt. Cavalry Water Quality Facility
35 Option A- Cleveland Street Flow Diversion
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
41 Willow Creek- West Branch Culvert/Channel Retrofits
Willow Creek Basin Lon1!-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
Willamette River LonK-term
46 Federal PriorityProiect- Eugene Millrace Enhancements
River Road-Santa Dara Basin Short- Term
47 Willamette Overflow Channel Upgrade
48 Irvington Road Drainage Improvements
49 River Road Drainage Improvements
River Road-Santa Dara Basin Lon1!-Term
50 Water Quality Project
51 Flat Creek Low Flow Channel Upgrade
52 Upgrade Existing Pipe
53 A-1 Channel Upgrade
54 Water Quality Facility
55 Flat Creek Water Quality Facility
56 Spring Creek Water Quality Proiect
57 Spring Creek Culvert Replacement
58 A-I Channel, West Tributary Improvements
City-wide ProJects Short-term (not mapped)
Channel Easement Acquisition and Stormwater Rehabilitation
City-wide Proiects Lon1!-term (not mapped)
Channel Easement Acquisition and Stormwater Rehabilitation
)
.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 22 001
Exhibit 8-22
.
100
101
102
103
104
105
106
107
108
109
110
ll1-A
l11-B
.
200-A
200-B
200-C
200-D
.200-E
200-F
200-G
.
Table 6.
City of Springfield Stormwater System Improvement Projects
201
202
203
204
205
206
207
208
209
210
211
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 23 of31
Exhibit 8-23
. 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.
Table 7.
EWEB Planned Electrical Facilities
1
2
3
4
5
6
7
8
9
10
11
69KV Transmission Line - eXlstm corridor)
115KV Transmission Line - (two alternate routes)
River Loo Substation
A' ort Substation
Bar er Substation
Hillaire Substation
Crow Substation
Cobur Substation
Bloomber Substation
Goshen Substation
Irvin on Substation
Table 8.
SUB Planned Electrical Facilities
Solid Waste
Glenwood Substation
Marcola Road Substation
East S rin eld to Thurston Transmission Line
Thurston to Marcola Road Transmission Line
Jas er Road to 10 Street Extension (alternative A
Jas er Road to 10 Street Extension alternative 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 new Metro Plan Policy #G. 24).
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments . Page 24 of 31
Exhibit B - 24
. PART ill:
The Glossary set forth in Chapter V of the Eugene-Springfield Metropolitan Area General Plan is
amended to read: (additions red-lined, deletions in strikeout); in the final draft, the definition
numbers will be deleted, and the unamended definitions will be included.
New definition:
Best Management Practices (BMPs): 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.
New definition:
Class F Streams (currentlv Class 1 Streams in Lane Code) - "Streams that have fish use,
including fisp use streams that have domestic water use," as defined in OAR 629-635.
New definition:
.
Drinking water protection (source water protection): 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.
New definition:
Extension of urban facilities: construction of the facilities necessary for future service provision.
New definition:
Floodplain: The area adjoining a river, stream or watercourse that is subject to lOa-year flooding.
A lOa-year flood has a one-percent chance of occurring in anyone year as a result of periods of
higher-than-nonnal rainfall or streamflows, high winds, rapid snowmelt, natural stream blockages, .
tsunamis, or combinations thereof.
New definition:
Floodway: The normal stream channel and that adjoining area of the floodplain needed to convey
the waters of a lOa-year flood.
New definition:
.
ExhibitB to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 25 of31
Exhibit 8-25
. Groundwater: Water that occurs beneath the land surface in the zone(s) of saturation.
New definition:
Impervious surface: Surfaces which prevent water from soaking into the ground. Concrete,
asphalt, and rooftops are the most common urban impervious surfaces.
New definition:
Key urban facilities and services:
· 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).
· full range: 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 Projects:
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 EWEB.
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.
Watewater:
Stormwater:
Specific proiects adopted as part of the Metro Plan are described in the Proiect Lists and their
general location is identified in the Planned Facilities Maps in Chapter II of the Eugene-
Soringfield Metrooolitan Area Public Facilities and Services Plan.
New definition:
Special service district: Any unit of local government, other than a city, county, an association of
local governments performing land use planning ~nctions under ORS 195.025 authorized and
regulated by statute, or metropolitan service district formed under 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;
.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and SelVices Plan and Metro Plan Amendments
Page 26 of 31
Exhibit 8-26
. and park and recreation districts.
.
.
New definition:
System development charge (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 improvement, or issuance of a development permit or building permit.
Revised definition:
Urban growth boundary: A site-specific line, delineated on a map or by written description, that
separates the projected urban service area urban and urbanizable lands from rural lands. Refer to
graphic on page 'l 5.)
Delete definition:
Urban Service area. current: the actual geographic portion of the metropolitan area designated as
urban land and in which the minimum le'.'cl of key urban facilities and services arc ayailable or
imminent. (Refer to graphic, below.)
Delete definition:
Urban service area. proiected: The estimated geographic urbarnzablc areas within which a full range
of urban service Vlill need to be extended or provided to accommodate urban development needs by a
designated future point in time. it is primarily determined by population, land use. and economic
projections. Periodic adjustments to these projections are necessary to reflect changing conditions and
more recent data. (Refer to graphic, belmv.) ,
New definition:
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.
New definition:
Urban water and wastewater service provision: the physical connection to the water or
wastewater system.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services,Plan and Metro Plan Amendments
Page 27 001
Exhibit B-27
. PARTlY:
The folloWing sections of the Eugene-SprihgfieldMetropolitan Area General Plan (MetroPlan) are
amended in order to be consistent with the findings and policies of the Public Facilities and Services
Element. These revisions are listed in order as they appear in the Metro Plan. They are indicated by
Chapter, Section, and page number July 1997 reprint of the 1987 Metro Plan. Changes to the text are
shown in strike-out (for deletions) and redline (for additions). Explanatory comments are in italics.
Page 1-3:
ChapterI. Introduction
C. Plan Contents
Appendices
The following information, available at Lane Council of Governments, was originally intended to
be included as appendices to this Plan, butit was not formatted into appendices:
Appendix A
.
Appendix B
Appendix C
Appendix D
Public Facility Plan Project Lists and Maps for Water, Storm Sewers, Sanitary
Sewers, and Transportation (These lists and maps are replaced by the project lists
and Planned Facilities Maps in Chapter II of the Eugene-Springfield Metropolitan
Area Public Facilities and Services Plan).
List of Refinement and Functional Plans and Map of Refinement Plan Boundaries
List of Exceptions and Maps of Site-Specific Exception Area Boundaries
Auxiliary Maps Showing the Following:
Ffue station locations
solid waste site
electrical substations and transmission lines
airport zones .
U~rban.growth boundary
Greenway boundary
Sschools
Pparks
The maps in the Lane County Solid Waste Management Plan, as referenced in new Metro Plan
Policy # G.24, 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 the Public Facilities and
.
Exhibit B to Adopting Ordinance for tl1eE:ugene~Springfield Metropolitan Area Public;
Facilities and Services Plan and Metro Plan Amendments
Page28of31
Exhibit B-28
. Services 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, as revised through the TransPlan update process.
.
.
Pages II-B-3 to II-B-5:
Chapter II-B. Growth Management and the Urban Senrice Area
Policies
1. The urban service area concept growth boundary and sequential development shall
continue to be implemented as an essential means to achieve compact urban growth. The
planning, programming, and financing for provision of all urban services shall be
concentrated inside the projected urban scn.ice area urban growth boundary.
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 1982, but the Metro Plan text was not
changed For clarity, the policy is amended to simply state that urban services will be
concentrated inside the urban growth boundary.
Insert new policy #2 and renumber subsequent policies sequentially:
2. The UGB shall lie along the outside edge of existing and planned rights-of-way that form a
portion of the UGB so that the full right-of-way is within the UGB.
The above new policies are intended to clarify and provide consistent policy direction for
interpretation of the urban growth boundary relative to rights-of-way.
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. A minimum level of key urban facilities and services can be provided to the area in an
orderly and efficient manner. They consist of sanitary sewers wastewater service,
storrmvater service, solid waste management, water service, fire and emergency medical
services, police protection, city Vt'ide parks and recreation programs, electric service,
land use controls, communication facilitics,and public schools on a district '.vide basis
(in other 'Nards, not necessarily within '.valking distance of all students sen.'ed). Pa'led
streets '.vithadequate provision for storm-water runoff and pedestrian travel, meeting
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 29 of31
Exhibit 8 - 29
.
applicable local policies, are important, particularly in ne'.Y developments and along
oxisting streets hea';ily used by pedestrians.
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 II-B-4)
1 OS.
A full range of key urban facilities and services shall be provided to urban areas according
to demonstrated need and budgetary priorities. They include, in addition to the minimum
level of key urban facilities and services, urban public transit, natural gas, storm drainage
facilities, street lighting, libraries, local parks, local recreation facilities and services, and
health services. (Metro Plan, page II-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.
Page III-C-IO:
Chapter III-C: Environmental Resources
. 20.. In order to improve ,>,yater quality and quantity in the metropolitan area, local governments
shall consider developing regulations or instituting programs to:
a. Increase public m:'1areness of techniques and practices private individuals can .
employ to help correct '.vater quality and quantity problems;
b. Improve management of industrial and commcrcial operations to rcducc negative
';later quality and quantity impacts;
c. Regulate site planning for ne'.'.' development and construction to better control
drainage and erosion and to manage storm runoff;
d. Increase storage and retention of storm runoff to lower and delay peak storm
flews;-
e. Utilize natural and simple mcchunieal treatment systems to provide treatment for
potentially contaminated runoff waters;
f. Reduce street. related '"vater quality and quantity problems;
.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page30of31
Exhibit 8-30
.
.
.
g. Minimi~e use of toxic substances; and
h. Minimize the ncgative effects of chemical and petroleum spills.
This policy was amended to reflect current federal and state law and local practices toprotect
groundwater quality. The amended policy was moved to the Public Facilities and Services
Element, Policy G. 13.
Page III-E-3:
Chapter ill-E. Environmental Design
2. Natural vegetation, natural water features, and drainageways shall be protected and
retained to the maximum extent practicalble considering the econonllc, social,
environmental, and energy consequences in the design and construction of urban
developments. Landscaping shall be utilized to enhance those natural features. This
policy does not preclude increasing their conveyance capacity in an environmentally
responsible manner: (Metro Plan, page ill-G-2),
The above policy-amendment is proposed to make this policy consistent with proposed
stormwater policies in Metro Plan Chapter III-G.
Exhibit B to Adopting Ordinance for the Eugene-Springfield Metropolitan Area Public
Facilities and Services Plan and Metro Plan Amendments
Page 31 001
Exhibit 8-31
.
Exhibit C To Ordinance No.
FINDINGS IN SUPPORT OF AN ORDINANCE AMENDING THE EUGENE-
SPRINGFIELD METROPOLITAN AREA GENERAL PLAN (METRO PLAN) TO
ADOPT A NEW PUBLIC FACILITIES AND SERVICES ELEMENT, PLANNED
PUBLIC FACILITIES PROJECT LISTS AND MAPS AND RELATED CHANGES TO
THE PLAN TEXT; ADOPTING A NEW EUGENE-SPRINGFIELD METROPOLITAN
AREA PUBLIC FACILITIES AND SERVICES PLAN AS A REFINEMENT PLAN TO
THE METRO PLAN; AND ADOPTING A SEVERABILITY CLAUSE.
The following criteria from Eugene Code Section 9.128(3), and Springfield Development Code.
7.070(3), and Lane Code 12.225(2) shall be applied by the elected officials in approving or
denying an amendment to the Metro Plan:
(a). The amendment must be consistent with the relevant statewide planning goals
adopted by the Land Conservation and Development Commission;
(b) Adoption of the amendment must not make the Metro Plan internally inconsistent.
.
The Eugene and Springfield City Councils and the Lane County Board of Commissioners make
the following findings with respect to the criteria set forth in Eugene Code Section 9.128(3), and
Springfield Development Code 7.070(3), and Lane Code 12.225(2):
The following information, analysis, reports, minutes and materials are included along with other
material, in the record of this proceeding. While this supporting background material may not all
be specifically mentioned or referenced in the findings, they provide most of the factual basis for
these findings.
1. April 1999 Technical Background Report: Existing Conditions and Alternatives, Eugene-
Springfield Metropolitan Area Public Facilities and Services Plan
2. April 4,2001 minutes and staff notes of the Joint Work Session and Public Hearing of the
Eugene and Springfield City Councils and Lane County Board of Commissioners; and
minutes and staff notes of the July 16, 2001 Springfield City Council and July 18, 2001
Eugene City Council.
3. April 2, 2001 written testimony by George Grier.
4. March 6, 2001 letter from Eugene Water & Electric Board
5. March 1, 2001 letter from Springfield Utility Board
. 6. March l~ 2001 letter from the Department of Land Conservation and Development
Exhibit C - 1
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 1 of 11
.
.
.
7. October23, 2000 written testimony by George Grier.
8. September 26,2000 Planning Commission Joint Work Session and October 24,2000 Joint.
Public Hearing staff notes and minutes; and staff notes and minutes for the Eugene
Planning Commission, December 18, 2000 and Lane County and Springfield Planning
Commissions, December 19, 2000.
9. September 26,2000 letter to George Kloeppel from Jerry Ritter, Member, Oregon
Communities for a Voice in Annexations.
10. September 29,2000 written response to Mr. Ritter from George Kloeppel
11. May 6, 1999 letter from Mark Radabaugh, DLCD
12. March 1, 1999 Public Involvement Plan for the Metropolitan Public Facilities Plan Update
Criterion #1: Eugene Code Section9.128(3)(~), Springfield Development Code 7.070(3)(a),
and Lane Code 12.225(2)(a): The amendment must be consistent with the relevant
statewide planning goals adopted by the Land Conservation and Development
Commission.
The Public Facilities and Services Plan Study recommendations of the joint planning
commissions are amendments to the Eugene-Springfield Metropolitan Area General Plan text.
Specifically, the changes made replace the Public Utilities, Services, and Facilities Element,
Chapter III-G, amend and add definitions to the Glossary of the Metro :Plan, Chapter V, and other
minor or housekeeping amendments to other portions of the Metro Plan to make the document
internally consistent.
Goal 1 - Citizen Involvement: To develop a citizen involvement program that insures the
opportunity for citizens to be involved in all phases of the planning process.
There were significant opportunities for involvement by citizens throughout the Public Facilities
and Services Plan Update. On March 1, 1999, the Joint Planning Commission Committee (JPCC)
approved a Public Involvement Plan (pIP) for the Study. TheJPCC is made up of two planning
commissioners from each jurisdiction and is charged under the Metro Plan with providing
guidance for citizen involvement in all metro studies and projects (See policy 5, Metro Plan
Citizen Involvement Chapter III-K). Consistent with the JPCC-approved PIP, the Public
Facilities and Services Plan Update was guided by a 16:-member Technical Advisory Committ.ee
(T AC). The T AC represented the facility and service providers in the metropolitan area.
Opportunities for public involvement_ included:
D An Interested Parties Mailing List was maintained to provide notice of workshops and
public meetings and hearings. The list was sent the Periodic Review Newsletter which
contains status reports on the Public Facilities and Services Plan. This list contains over
Exhibit C-2
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 2 of 11
.
.
.
1,200 names. Additional names have been 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.
o 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 1999. A
workshop on the draft plan was held on October 5,2000.
o Newspaper Ads and News Releases were prepared and released to the local media prior
to events and public hearings.
o WEB Site: the draft plan has. been available for review on the internet at
http://www.LCOG.org/Metro.
o Flyers, Fact Sheets, and Frequently Asked Questions papers were prepared and
distributed at workshops.
o Presentations by project staff to local citizen and special interest groups were provided
on request.
o Public Hearings on the draft refinement plan and recommended amendments to the
Metro Plan were conducted during the Public Facilities and Services Plan adoption'
process. A joint public hearing before the Eugene, Springfield, and Lane County Planning
Commissions was held on October 24,2000. Ajoint public hearing before the Eugene
and Springfield City Councils and Lane County Board of Commissioners was held on .
April 4, 2001.
The citizen involvement process described above demonstrates compliance with Goal 1 in terms'
of: public notices, comment forms, public forums for direct conversations by the public with
. Technical Advisory Committee members, public hearings with the planning commissions and
elected officials, provision of technical information for the public during each phase of the study,
and a record of all comments received during public forums, public hearings and comment periods
that were made available in advance of all decision-making. Therefor, these amendments are
consistent with Goal 1,
Goal 2 - Land Use Planning: To establish a land use planning process and policy framework as a
basis for all decisions and actions related to use ofland and to assure an adequate factual base for
such actions.
The amendments to the Eugene-Springfield Metropolitan Area General Plan through the Public
Facilities and Services Plan Update process were initiated by Eugene and Springfield City
Councils and the Lane County Board of Commissioners by joint adoption of the Periodic Review
Work Program. An integral part of the study was the use of data, research, and analysis as
documented in the April, 1999 Technical Background Report: Existing Conditions and
Alternatives.
Exhibit C-3
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 3 of 11
.
.
.
/"
Throughout the study, factual information was presented to and feedback was solicited fromthe
citizen participants, decision makers, the general public, and affected governmental entities. This
information was presented through a variety of means, including publications, meetings, and the
media. The results of this study are based on fact and are consistent with the planning framework
established in the Metro Plan and applicable State Goals and Oregon Administrative Rules.
Therefore, these amendments are consistent with Goal 2.
Goal 3 - Agricultural Lands: To preserve and maintain agricultural lands
Policies G.27, G.28 and G.29 address agriculturaJ.lands. These policies allow water, wastewater,
and stormwater facilities to locate on agricultural land outside the urban growth boundary when
they exclusively serve land inside the boundary, there is no reasonable alternative, and when it
complies with local and state law. PolicyG.32 prohibits the building of new schools outside the
UGB in the Plan boundary.
"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
law, to appropriately designate land for urban facilities located outside the Urban
Growth Boundary or the Plan boundary." .
"G.32 New schools within the Plan boundary shall be built inside the urban growth
boundary."
These policies comply with Goal 3 because they ensure that public facilities will locate on farm
land only when in compliance with the requirements of state and local law.. Therefore, these
amendments are consistent with Goal 3.
Goal 4 - Forest Lands: To conserve forest lands by maintaining the forest land base and to
protect the state's forest economy by making possible economically efficient forest practices that
assure the continuous growing and harvesting of forest tree species as the leading use of forest
land consistent with sound management of soil, air, water, and fish and wildlife resources and to
provide for recreational opportunities and agriculture.
.. Exhibit C-4
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Sen>ices Plan and Metro Plan Amendments
Page 4 of 11
. Policy G.27, G.28 and G.29 also address forest lands. Consistent with state law, these policies
allow water and wastewater facilities to locate on forest land outside the urban growth boundary
when they exclusively serve land inside the boundary, there is no reasonable alternative, and when
it complies with local and state law. Policy G.32 prohibits the building of new. schools outside the
UGB in the Plan boundary, including any lands designated for forest use.
"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
law, to appropriately designate land forurban facilities located outside the Urban
Growth Boundary or the Plan boundary."
.
"G.32 New schools within the Plan boundary shall be built inside the urban growth
boundary. "
These policies. comply with Goal 4 because they ensure that public facilities will locate on forest
land only when in compliance with the requirements of state and local law. Therefore, these
amendments are consistent with Goal 4. .
. Goal 5 - Open Space, Scenic and Historic Areas, and Natural Resources: To conserve open
space and protect natural and scenic resources.
The findings and policies in the refinement plan and Metro Plan policies do not make any changes
to adopted inventories or affect. Goal 5 resources. Therefore, the amendments. are consistent with
Goal 5. .
Goal 6 - Air, Water, and Land Resources Quality: To maintain and improve the quality of the
air, water, and land resources of the state.
.
Metro Plan policies adopted as part of the revised Public Facilities and Services Element comply
with Goal 6 to maintain and improve the quality of the air, water, and land resources. Policies
G.lD and G.B through G.19 require the local governments to take actions to protect surface and
ground water quality and waterways. Policy G.31 requires that measures to protect, enhance, or .
alter Class F Streams outside the UGB be consistent with Lane County's riparian standards.
Therefore, the proposed refinement plan and Metro Plan amendments meet the requirements. of.
Exhibit C-5
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 5 of 11
. and are consistent with Goal 6.
Goal 7 - Areas Subject to Natural Disasters and Hazards: To protect life and property from
natural disasters and hazards.
The project lists and Planned Stormwater Facilities Maps identify needed stormwater public
facilities and their general location. These facilities are needed in order to serve development
within the urban growth boundary at build"-out. The proposed stormwater facilities are designed
to protect residents and properties from flooding. Therefore, these amendments are consistent.
with Goal?
Goal 8 - Recreational Needs: To satisfy the recreational needs ofthe.citizens of the state and
visitors and, where appropriate, to provide for the siting of necessary recreational facilities
including destination resorts.
The Public Facilities and Services Plan Update does not directly address recreational needs nor
. does it affect land designated for recreational use. Therefore, these amendments are consistent
with Goal 8
Goal 9 - Economic Development: To provide adequate opportunities throughout the state for a
variety of economic activities vital to the health, welfare, and prosperity of Oregon's future.
.
Theproposed Metro Plan policies and project lists are necessary to serve industrial and
commercial development within the UGB at build-out. These facilities and policies do not change
any commercial or industrial plan diagram designations or any economic policies of the Metro
Plan. Therefore, these amendments are consistent with Goal 9.
Goal 10 - Housing: To provide for the housing needs of citizens of the state.
The proposed Metro Plan amendments and project lists are necessary to serve residential
development within the UGB at build-out. These facilities and policies do not change any
residential plan diagram designations or any residential policies of the Metro Plan. Policies G.7
and G.23 support the policy direction in Goal 10 to provide a range of housing choices.
"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.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."
.
Therefore, these amendments are consistent with Goall O.
Goal 11 - Public Facilities and Services: To plan and develop a timely, orderly and efficient
Exhibit C-6
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and SeM'ices Plan and Metro Plan Amendments
Page 6 of 11
. arrangement of public facilities and services to serve as a framework for urban and rural
development.
The Public Facilities and Services Plan is proposed for adoption as a refinement plan to the Metro
Plan. The proposed Metro Plan policies and policy amendments, project lists, and maps, are
proposed to meet the requirements of Goal 11 which 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:
Transportation:
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).
Water:
Wastewater:
Stormwater:
In addition, this Public Facilities and Services Plan contains information about and maps for
maj or electrical transmission lines and facilities in order to better coordinate the 10catiOIl of these
facilities with planning for land uses and other public facilities and serVices. Policy G. 24 ofthis .
. plan provides for solid waste disposal sites, including sites for inert waste, as required by Goal 11 ,
In accordance with OAR 660-011-0010, the Public Facilities and Services Plan and Technical.
Background Repo.rt contains inventories, projects, and policies, as described below.
1. Inventory
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
Lists. 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 of the provider's existing funding mechanisms.
.
Projects that will serve future development in the urban growth boundary are identified as
occurring in either the short term (five years or less) or long term (six years. or more).
Short-term projects identify an approximate year for development.
3. Policies
Exhibit C-7
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 7 of 11
.
Policies designating the provider of each public facility project.
The plan provides that 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
W ~stewater 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.
The plan will be adopted locally as a refinement plan. The following components of the public
facilities will be adopted as part of the comprehensive plan:
1. Project titles;
2. .. Maps of the projects' locations; and
3. Comprehensive plan policies.
Project timing and financing provisions of public facility plans are not considered land use
decisions as specified under ORS 197.015(10). Project timing and financing provisions in the
Public Facilities and Services Plan are not adopted as part of the Metro Plan.
.
Goal 11 and administrative rules were amended in 1998, in part to determine the circumstances
under which wastewater collection systems can loca,.te 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.
Proposed Metro Plan Policies G.27, G.28 and G.29 address these provisions of the rule. These
policies allow water, wastewater, and stormwater facilities to locate on agricultural land and
water and wastewater facilities to locate on forest land outside the urban growth boundary when
they exclusively serve land inside the boundary, there is no reasonable alternative, and when it
complies with local.and state law.
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. The
proposed plan and Metro Plan policies do not allow an increase in either allowable density or in
higher density of residential development due to a water system.
.
The proposed Public Facilities and Services Plan and Metro Plan amendments are consistent with
Goal 11.
Exhibit C-8
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 8 of 11
.
.
.
Goal.12 - Transportation: To provide and encourage a safe, convenient and economic
transportation system.
The Transportation Planning Rule provides that local transportation system plans that meet the
requirements of Goal 12 are considered to meet the requirements of Goal 11 for public facility
planning. Transportation facility planning in the Eugene-Springfield metropolitan area is
conducted as part of the update of TransPlan, the Eugene-Springfield Transportation System
Plan, which is now undergoing the adoption process. TransPlan also proposes Metro Plan
policies pertaining to transportation which will become part of the Metro Plan Transportation
Element.
The Public Facilities and Services Plan does not specifically address transportation facilities:
Transportation facilities are. addressed in TransPlan and in the Transportation Element of the
Metro Plan. Therefore, the proposed plan and Metro Plan amendments are consisten,t with Goal
12.
Goal 13 - Energy Conservation: To conserve energy.
The electrical projects identified in the refinement plan are proposed to serve development in the
UGBat build-out to meet the long and short term needs of the metropolitan area. As indicated in
Finding#22, page 16 of the Public Facilities and Services Plan, efficient provision of this service is
achieved through inter-connected systems which avoid overlap of service. Policy G.20 provides
for coordination and cooperation in the provision of this service.
Finding:
"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."
Policy:
"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."
Policy direction in the amendments also encourage reductions in the duplication of services and
coordination in targeting all public services to higher density development which will, because of
the s~ructure type and reduced dwelling sizes, assist in meeting energy conservation goals.
Therefore, these amendments are consistent with Goal 13.
Goal 14 - Urbanization: To provide for an orderly and efficient transition from rural to urban
land.
The Public Facilities and Services Plan and proposed amendments to the Metro Plan do not
recommend expansion of the Urban Growth Boundary nor propose conversion of land from rural
Exhibit C - 9
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 9 of 11
.
to urban uses. Therefore, the amendments are consistent with Goal 14.
Goal 15 - Willamette River Greenway: To protect, conserve, enhance and maintain the natural,
scenic, historic, agricultural, economic and recreational qualities of lands along the Willamette
River as the Willamette River Greenway.
The Public Facilities and Services Plan and proposed Metro Plan amendments do not make any
changes to lands along the Willamette River or within the Greenway Boundary. As stated under
the Goal 6 findings; proposed Policies G.l 0 and G.l3 through G.19 require the local governments
to take actions to protect surface and ground water quality and waterways. Policy G.31 requires
that measures to protect, enhance, or alter Class F Streams outside the UGBbeconsistent with
Lane County's riparian standards. Based on these policies and the lack of changes in the status of
lands within the Willamette River Greenway, these amendments are consistent with Goal 15.
Goals 16 - 19 (Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean
Resources): .
Not applicable to the Metrq area.
.
Criterion #2: Eugene Code Section 9.128(3)(b), Springfield Development Code7.070(3)(b),
and Lane Code 12.225(2)(b): Adoption of the amendment must not make the Metro Plan
internally inconsistent.
The Public Facilities and Services Plan Update Study and the joint planning commissions are
recommending a completely new Metro Plan element for Public Facilities and Services. The
proposed policy direction generally represents a continuation of existing policy direction in the
current Metro Plan and new policies are proposed for consistency with state law or changing
local conditions. Policies have been updated, strengthened, or rewritten to be clear anq concise
and do not create any inconsistencies with other parts of the Plan. The changes in the Glossary
are not substantive; additions or modifications were made to existing definitions that are out of
date, or, in the case of new definitions that are used in the revised Public Facilities and Services
Element.
Fundamental Principles of the Metro Plan
The proposed policy.direction in the Public Facilities and Services Element will continue to meet
the overall Metro Plan fundamental principles of compact urban growth, and reducing urban
sprawl. This 'element provides guidelines for special service districts in line with the compact
urban development fundamental principle of the Metro Plan.
Plan Diagram
Exhibit C-10
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 10 of11
.
.
While the J;>ublic Facilities and Services Element stands as a separate and distmct section, the
proposed policy direction in the amendments was reviewed continually with other specific
elements of the Metro Plan during its creation and review.
The policies in the proposed Metro Plan Element complement Metro Plan Chapter II-A:
Fundamental Principles and Chapter II-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. 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. The policies propose that 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, consistent with state law. .
The policy direction in the Residential Land and Housing Element and Transportation Element
calls for higher density, growth in downtown areas, and encouraging development in proximity to
transit. These goals are consistent with the policy direction in the proposed amendments to the
Public Facilities and Service Element.
The Environmental Resources Element Policy 20 is directly related to.stormwater services. The
proposal amends this policy to reflect new federal and state law and changed local practice to
protect wate~ quality and moves it to the Public Facilities and Services Element.
Thus, the amendments proposed have addressed' and taken into account other elements of the
Metro Plan and are consistent with the policy direction of those elements.
.Other Sections of Metro Plan
A detailed analysis was done of the other sections of the Metro Plan that required changes due to
the proposed amendments and findings. These changes are included in the proposed amendments.
In all other respects, there are no inconsistencies between the proposed plan amendments and
other sections of the Metro Plan. .
CONCLUSION
Based .on the findings set forth herein, the Eugene and Springfield City Councils and the Lane
County Board of Commissioners concludes that the proposed PublicFacilities and Services Plan
and amendments to the Metro Plan text are consistent with relevant statewide planning goals
adopted by the Land Conservation and Development Commission; and adoption of the Public
Facilities and Services Plan as a Metro Plan refinement plan and the proposed Metro Plan
. amendments will not make the Metro Plan internally inconsistent.
Exhibit C-11
Exhibit C: Findings in Support of Adopting Ordinance for the Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan and Metro Plan Amendments
Page 11 of 11
, ;t . .(1'
(
(
~
..."'~: .Il!'
'~"""'" ':~',.~~;m~, ,
~~
Eugene-Springfield Metropolitan Area
Public Facilities and Services Plan
A refinement plan of the
Eugene-Springfield Metropolitan Area General Plan
.~
.
;
$"
':i
ffi
'.
.~
.~
,t
ji
Public Review Draft
September 12, 2000 .
.' ..1
-~~~,,-. ~m;;.w
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 A venue, Suite 240
Eugene, OR 97401
(541) 682-5451
Lane Council of Governments
. Carol Heinkel, Principal Planner, Project
Coordinator
Lane Council of Governments
99 East Broadway, Suite 400
Eugene, OR 97401-3111
(541) 682-4107
(
(,
-~
.
.
.
, I
Eugene-Springfield Metropolitan Area
Public Facilities and Services Plan
Prepared for
The Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Technical Advisory Committee
Prepared by
Lane Council of Governments
99 East Broadway
Suite 400
Eugene, Oregon 97401-3111
(541) 682-4283
Public Review Draft
September 12,2000
~ .,-J
. ,
. Table of Contents
Preface v
Acknowledgements VB
I. Introduction 1
Study Background and Process 1
Refinement Plan Purpose and Objectives 2
Policy Analysis Considerations 2
Statewide Planning Public Facility Plan Requirements 3
Public Involvement Opportunities 5
II. Metro Plan Amendment Recommendations 7
Introduction 7
Text Amendments 7
Chapter III-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 27
Planned Stormwater System Improvements 28
Planned Electrical System Improvements 30
. Solid Waste 31
III. Policy Analysis 41
Introduction 41
Chapter III-G. Public Utilities, Services, and Facilities Element 41
Other Metro Plan Text Amendments 65
Chapter I. Introduction 65
Chapter II-B. Growth Management and the Urban Service Area 66
Chapter III-E. Environmental Design Element 67
Chapter V. Glossary 68
IV. Public Facilities Needs Analysis 71
Existing Service Areas 71
Public Facility Systems Condition Assessment 72
Water System Condition Assessment 72
Wastewater System Condition Assessment 80
Stormwater System Condition Assessment 82
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
Table of Contents (continued)
IV.
Public Facilities Needs Analysis (continued)
Public Service Availability
Methodology
Short-Term Service Availability
Long-Term Service Availability
Estimated Project Costs and Timing
Planned Water System Improvements
Planned Wastewater System Improvements
Planned Stormwater System Improvements
V.
Financing Methods and Alternatives
Financing Methods
Existing Financing Strategies
Financing Issues and Challenges
Alternative Financing Strategies
Appendices
Appendix A:
86
87
87
92
97
97
99
100
103
103
103
104
106
1987 Metro Plan Chapter III-G. Public Utilities,
Services, and Facilities Element 109
Existing Federal, State, and Local Policy Framework 119
Statewide Planning Goal 11 and OAR 660 Division 11 139
Appendix B:
Appendix C:
Index to Tables
Table 1
Table 2
Table 3
Table 4
Table 5
Table 6
Table 7
Table 8
Table 9
Table 10
Table 11
Table 12
Table 13
Table 14
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
11
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
26
27
27
28
28
30
31
31
80
82
83
85
97
98
, t
"
.
.
.
f I
.
.
.
. I
Table of Contents (continued)
Index to Tables
Table 15 City of Eugene Wastewater System Improvements, Estimated Costs,
and Timing 99
Table 16 City of Springfield Wastewater System Improvements, Estimated Costs,
and Timing 99
Table 17 City of Eugene Stormwater System Improvements, Estimated Costs,
and Timing 100
Table 18 City of Springfield Stormwater System Improvements, Estimated Costs,
and Timing 102
Table 19 Existing Financing Sources 105
Index to Maps
Map 1: Planned Water Facilities
Map 2: Planned Wastewater Facilities
Map 3: Planned Stormwater Facilities
Map 4: Planned Electrical Facilities
Map 5: Existing Water Service Areas
Map 6: Existing Wastewater Service Areas
Map 7: Existing Stormwater Service Areas
Map 8: Public Service A vailability in the Eugene-Springfield Metropolitan Area
33
35
37
39
73
75
77
89
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
111
I'
.
.r
.
.
. ,
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 1987
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 1987 update of the Metro Plan included Metro Plan text amendments recommended through
the development and adoption of the 1987 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
11 and Goal 11 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 1995 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
Each governing body subsequently adopted this refinement plan to the Metro Plan and the
agreed upon Metro Plan amendments:
Lane County, Ordinance No. _, adopted
City of Eugene, Ordinance No. _, adopted
City of Springfield, Ordinance No. _, adopted
,2001
,2001
,2001
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
v
"
.
J
.
.
, ,
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
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
vii
Metropolitan Planning Directors
Jan Childs, Eugene Planning Director
Kent Howe, Lane County Planning Director
Greg Matt, 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
viii Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
, ,
'I
.
, ~
.
.
f J , ,
. I. Introduction
This Eugene-Springfield Metropolitan Area Public Facilities and Services Plan (Public
Facilities and Services Plan) is a refinement plan of the 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, stormwater, 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 (TAC) 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).
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
1
, ,
'I
The TAC met monthly from July 1998 through October 1999. Over this 16-month period, the
T AC 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 T AC 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 reviewed, 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
within 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.\
This refinement plan has two objectives:
.
1. 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 11 and Goal 11 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 1987 element is contained in Appendix A. Recommended amendments to
this element are presented in Chapter II of this plan.
\ See Existing Service Areas in Chapter IV of this plan.
.
2
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
I"
.
)
.
.
, I
The Public Utilities, Services, and Facilities Element is closely associated with policies in other
chapters of the Metro Plan, in particular Chapter II-B. 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 T AC 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 11 and Goal 11 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 11 (Goal I!) 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, DivisionII requires cities with a population
over 2,500 to adopt a "public facilities plan" for areas within an urban growth boundary.
State law 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
3
, '1 l- ~
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 11? .
~
OAR 660-011-0010 directs that public facilities plans contain inventories, projects, and policies,
as described below.
1. Inventory
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 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 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 197.015(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
.
2 See recommended Metro Plan Policy G.24 in Chapter II.
4
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
f'
.
.
.
. 1
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 11 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 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.
For more details on these legal requirements, Appendix B contains an analysis of federal, state,
and local policies, including a detailed analysis of Goal 11 and administrative rules. Appendix C
contains the actual text of Goal 11 and OAR Chapter 660, Di vision 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 has used and will continue to use the following tools and processes:
. An Interested Parties Mailing List is maintained to provide notice of significant
events such as workshops, forums, and public meetings and hearings. The Interested
Parties List for Periodic Review is sent the Periodic Review Newsletter, which
contains status reports on the Public Facilities and Services Plan. This list contains
over 800 names. Additional names have been 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 are 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
1999. A workshop on the draft plan will be held in fall 2000.
. Newspaper Ads and News Releases are 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
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
5
I, '-,
. Flyers, Fact Sheets, and Frequently Asked Questions papers are prepared and
distributed, as needed. .
'/
. Presentations by project staff to local citizen and special interest groups are provided
on request.
. Public Hearings on the draft refinement plan and recommended amendments to the
Metro Plan will be conducted during the Public Facilities and Services Plan adoption
process, beginning in fall 2000.
.
.
6
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
}f 1'.
.
.
.
II. Metro Plan Amendment Recommendations
This chapter presents recommendations for amending the Metro Plan. Three types of
amendments are proposed:
1. Text amendments,
2. Planned Water, Wastewater, Stormwater, 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, II-B, III-E, and V.
Glossary, in order to make the Metro Plan internally consistent.
Chapter III-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 of future 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
7
The policies in this element complement Metro Plan Chapter II-A: Fundamental
Principles and Chapter II-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 11, "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 Goalll, 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.4 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 planned facilities maps is
determined through local processes.
4 Goalll also requires transportation facilities to be included in public facility plans. In this metropolitan area,
transportation facilities are addressed in Metro Plan Chapter III-F and in the Eugene-Springfield Transportation
System Plan (TransPlan).
8
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
"
'I
.
.
.
"
.
.
.
, .
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.
· Services to Development Within the Urban Growth Boundary
o Planning and Coordination
o Water
o Stormwater
o Electricity
o Schools
o Solid Waste
· Services to Areas Outside the Urban Growth Boundary
· Locating and Managing Public Facilities Outside the Urban Growth Boundary
. Financing
The applicable 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
1. 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
Findin2S
1.
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 extended, minimizing
the public cost of extending urban facilities.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
9
I, "
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 outsi"de 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 660-011-005 defines projects that must be included in public facility plan
project lists for water, wastewater, and stormwater. 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 (water; wastewater; fire;
parks, open space, and recreation; and streets, roads, and mass transit) will be
provided within the urban growth boundary.
.
10 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
t. "
.
.
.
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, and 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, stonnwater, 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 stonnwater public facility
projects or significant changes to project location, from that described in the
Public Facilities and Services Plan maps 1,2 and 3, require amending the Public
Facilities and Services Plan and the Metro Plan, except for the following:
1) Public facility projects not included in the Public Facilities and Services
Plan project lists or maps for which unanticipated funding has been
obtained; or
2) 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
3) Technical and environmental modifications to a public facility which are
made pursuant to final engineering on a project; or
4)
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
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
11
I, J t
federal or State of Oregon agency project development regulations
consistent with that act and its regulations. .
GA 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 services.
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
Findin2S
11. 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.lO 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. .
12
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
"
.
.
.
. ,
Management practices instituted to protect groundwater shall be coordinated
among the City of Springfield, City of Eugene, and Lane County.
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 Development Within the Urban Growth Boundary:
Stormwater
Findines
12. 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 stormwater 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.
16.
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
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
13
1, t,
of habitat through channelization and revetment of river banks, non-point source
pollution, alterations of natural hydrograph by increased impervious surfaces in .
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. Stormwater 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 bl,lildout of the drainage area. This poses risks to other properties in
or adjacent to floodplains and can change the hydrograph of the river.
.
Policies
G.13 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
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
, .
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;
e. Require on-site controls and development standards, as practical, to reduce
off-site impacts from stormwater 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;
I. 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.
0.14 Implement changes to stormwater facilities and management practices to reduce
pollutants regulated under the Clean Water Act and to address the requirements of
the Endangered Species Act.
0.15 Consider wellhead protection areas and surface water supplies when planning
stormwater facilities.
0.16 Manage or enhance waterways and open stormwater systems to reduce water
quality impacts from runoff and to improve stormwater conveyance.
0.17 Include measures in local land development regulations that minimize the amount
of impervious surface in new development in a manner that reduces stormwater
pollution and is compatible with Metro Plan policies.
0.18 The cities and Lane County shall adopt a strategy for the unincorporated area of
the urban growth boundary to prevent the filling of natural drainage channels,
reduce the negative effects of filling in floodplains, and ensure necessary
operations and maintenance of these channels.
0.19 Maintain flood storage capacity within the floodplain, to the maximum extent
practical, through measures that may include reducing impervious surface in the
floodplain.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
15
l I '..
Services to Development Within the Urban Growth Boundary: .
Electricity
Findin2s
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
0.20 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.
Services to Development Within the Urban Growth Boundary:
Schools
Findin2s
23.
ORS 195.110 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 197.296(4)(a) states that when the urban growth boundary is amended to
provide needed housing, "As part of this 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. Enrollment projections for the five public school districts in the metropolitan area
and the University of Oregon and Lane Community College (LCC) are not
consistent. Bethel 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 the
.
16
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
, .
willingness of districts to allow out-of-district transfers and to adjust district
boundaries. Adjustments in district boundaries may be feasible where there is no
net loss or gain in student enrollments between districts.
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 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, 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
0.21 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
17
, I
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.
0.22 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 Development Within the Urban Growth Boundary:
Solid Waste
Findin2s
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 Olenwood solid waste transfer facility should be encouraged
to locate in that vicinity.
Services to Areas Outside the Urban Growth Boundary
Findin2S
31. 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 of biosolids, 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
.
18
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
I'
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:
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
specified in Statewide Planning Goal 2.
Policies
G.25 Wastewater and water service shall not be 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 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 within the Eugene-Springfield urban
growth 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. 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 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
19
, ,
Locating and Managing Public Facilities Outside the
Urban Growth Boundary
.
Findin2s
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 obtain the necessary
county land use approvals to amend the Lane County Rural Comprehensive Plan,
as needed and consistent with state law, to appropriately designate land for urban
.
20
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
. .
facilities located outside the Plan boundary on the Public Facilities and Services
Plan Planned Facilities Maps.
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
Findin2S
39. ORS 197.712(2)(e) states that the project timing and financing provisions of
public facility plans 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.
41. 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
21
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 affected jurisdiction(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.
0.37 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 stormwater 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
Appendices
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
, .
.
.
.
. ,
.
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. Growth Management
Policies
1. 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.
Floodplain delineations made by local governments, where available, will be used
in place of, or as an update to, FEMA maps to determine the location of the urban
growth boundary and to guide land use decisions.
--
3. 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. A minimum level of key urban facilities and services5 can be provided to
the area in an orderly and efficient manner;
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 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 of key urban facilities and services.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
23
Chapter III - E. Environmental Design
Policies
2. Natural vegetation, natural water features, and drainageways shall be protected
and retained 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 Management Practices (BMPs): 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 defined in OAR 629-635.
Drinking water protection (source water protection): 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.
Floodplain: The area adjoining a river, stream, or watercourse that is subject to 100-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.
Floodway: The normal stream channel and that adjoining area of the 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.
Impervious surface: Surfaces that prevent water from soaking into the ground. Concrete,
asphalt, and rooftops are the most common urban impervious surfaces.
Key urban facilities and services:
. 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
, ,
.
.
.
.
Full range: 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.
.
Special service district: Any unit of local government, other than a city, county, an
association of local governments performing land use planning functions under ORS 195.025
authorized and regulated by statute, or metropolitan service district formed under 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.
System development charge (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 improvement, or issuance of a development permit or
building permit.
Urban growth boundary: A site-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 provision: The physical connection to the water or
wastewater system.
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
. 6 See Chapter II, Policy G.24.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
25
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 1: Planned Water Facilities.
Table 1
Eugene Water & Electric Board (EWEB) Water System Improvement Projects
Project Project NameJDescription
Number
Short-Term
107 Green Hill/Airport mainline
108 EWEB/Seneca 42-inch transmission line
109 City View reservoir (800)
110 Hayden Bridge Expansion and IOmg Reservoir and pump gallery
Lone-Tenn
218 Back -up well field development area
219 Hayden Bridge- former fish hatchery intake modifications
220 Laurel Hill reservoir (850)
221 Laurel Hill reservoir and pump station (975)
222 Laurel Hill pump station (1150)
223 Shasta reservoir (1150)
224 Dillard reservoir (975) and pump station (1150)
225 Dillard reservoir (1150)
226 Elliot reservoir (607)
227 Willamette reservoir (1325)
228 Willamette pump station (1500)
229 Timberline 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 GlenwoodILCC Basin intertie
.
.
26
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
. .
.
.
.
Table 2
Springfield Utility Board (SUB) Water System Improvement Projects
Project Project NameIDescription
Number
Short-Term
101 Install 24-inch line along 1-105
102 Install 16-inch line to Glenwood
103 Install 16-inch line along 320d Street
104 Add well(s) in existing Thurston well field
105 Add well at 16th and Q Street
106 Install new treatment at Thurston
107 Add well(s) near Thurston Wellfield
108 Install transmission lines along Booth Kelly Road into the Natron Area
109 Install new source, Willamette Wellfield
Long-Term
202 Install 16- to lO-inch line in SP railroad right-of-way
203 Install 12 and 16-inch line along Thurston Road, Main Street, and in South
Hills, to supply new development
204 Pump station(s) to serve upper levels
205 Install 16-inch line on SP railroad right-of-way south to Hayden Bridge Way
(RWD)
209 Add upper level reservoir(s): (3rd, 4Ul, 5Ullevel)
211 Install 16-inch line along Main Street
212 Add well(s) near 31st and Marcola Rd.
214 Add wells near Interstate-5 and Game Farm Road North.
215 Add wells in Natron area
216 Install 12-inch line, Thurston to Main Street
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
Project Project NameIDescription
Number
100
101
102
103
200
201
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
27
Table 4
City of Springfield Wastewater System Improvement Projects
Project Project Name/Description
Number
Short-Term
104 Jasper Road sewer extension
105 Game Farm Road trunk sewer
106 Gateway/Harlow Road pump station upgrade
Lonf(-Term
202 East Glenwood gravity sewer
203 19th Street pump station
Planned Stormwater 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.
Table 5
City of Eugene Stormwater System Improvement Projects
Project Project Name/Description
Number.
Willakenzie Basin Short- Term
1 River Point Pond Outlet Channel
2 Federal Priority Proiect- Delta Ponds Enhancement
Willakenzie Basin Lone- Term
3 Gilham Road System Water Quality Facility
4 Gilham Road System Culvert Replacement
5 Ayers Pond Outfall Retrofit
6 Wetland Adiacent Coburg & Country Farm Roads
7 Modify Ascot Park Open Waterway
Laurel Hill Basin Short-Term
8 Riverview/Augusta Bypass and System Improvements
9 Minor System Between Riverview and Augusta
10 1-5 and Augusta Water Quality Facility
11 Riverview/Augusta Minor Storm Drainage System Plan
Bethel Danebo Basin Short-Term
12 Green Hill Tributary Stream Enhancements
13 Culvert Replacement in Roosevelt Channel
23 West Irwin Storm
Bethel Danebo Basin Lone-Term
14 Royal Node Infrastructure
15 Retrofit Empire Park Pond
28
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
. .
.
.
.
.
.
.
. .
Table 5
City of Eugene Stormwater System Improvement Projects (continued)
Project Project NamelDescription
Number
16 Increase Pipe Sizes Along Bell A venue
17 Green Hill Tributary Water Quality Facility
18 Wallis Street Culvert (Bertelsen Slough)
19 Increase Pipe Sizes Along Garfield Street
Amazon Creek Basin Short-Term
20 Kinney Park Neighborhood Facility
21 Federal Priority Project- Upper Amazon Creek Restoration
22 Martin Drive Pipe Improvements
24 Hilyard Street Pipe Improvements
Amazon Creek Basin Long- Term
25 Federal Priority Project- Central Amazon Creek Restoration
26 Jackson Street Pipe Improvements
27 North Laurelwood Water Quality Facility
28 South Laurelwood Water Quality Facility
29 Pine View Neighborhood Facility
30 43rd A venue Pipe Improvements
31 Morse Ranch Park Pipe Improvements
32 Option B- Laurelwood Flood Control Facilities and Pipe
Improvements
33 Option B- Mt. Cavalry Pipe Improvements
34 Mt. Cavalry Water Quality Facility
35 Option A- Cleveland Street Flow Diversion
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
41 Willow Creek- West Branch Culvert/Channel Retrofits
Willow Creek Basin Long- Term
42 Realign/Restore Main Stem Willow Creek
43 Willow Creek- East Branch Culvert/Channel Retrofits
Willamette River Short-Term
44 Federal Priority Project- Willamette River Bank Restoration
45 Polk Street Water Quality Facilities
Willamette River Long-Term
46 Federal Priority Proiect- Eugene Millrace Enhancements
City-Wide Projects Short-Term (not mapped)
Channel Easement Acquisition
Stormwater Rehabilitation
City-Wide Projects Long-Term (not mapped)
Channel Easement Acquisition
Stormwater Rehabilitation
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
29
Table 6
City of Springfield Stormwater System Improvement Projects
Project Project NameIDescription
Number
Short- Term
100 Sports Way detention pond
101 Maple Island Slough Outfall
102 Deadman Ferry Outfall
103 Aster Street system
104 Jasper Slough outfall
105 20th Street Outfall
106 T Street detention pond
107 Pierce Industrial Park draina~e
108 Mill Race Enhancements, includin~ new intake
109 Jasper/Natron outfalls and associated pipe systems
110 Hi~hway 126/1-105 draina~e improvements
lll-A Cedar Creek: 69th Street Channel improvements
I11-B Cedar Creek: nncJ Street Channel Improvements
Lon/!- Term
200-A Cedar Creek: Outfall/Detention at Lively Park/McKenzie River
200-B Cedar Creek: Thurston Middle School Channel Improvements
200-C Cedar Creek: 66th Street Outfall
200-D Cedar Creek: 75th Street Outfall
200-E Cedar Creek: Gossler Bank control project
200-F Cedar Creek: Diversion System
200-G Cedar Creek: East Thurston RoadIHwy 126 Outfall and Associated
Piping
201 Thurston Road Interceptor
202 Hi~hway 126 and 87th Interceptor and Outfall
203 South 79th Street System
204 Rocky Point Drive System and Outfall
205 Roseborou~h Detention Pond
206 Borden Outfall Upgrade
207 Ash Street Outfall
208 Manor Drive Outfall
209 16th Street Outfall
210 Jasper Slough Improvements
211 Hayden Bridge Road Interceptor
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.
30 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
. .
.
.
.
.
.
.
. .
Table 7
EWEB Planned Electrical System Improvement Projects
Project Project NamelDescription
Number
1 69KV Transmission Line - (existing corridor)
2 115KV Transmission Line - (two alternate routes)
3 River Loop Substation
4 Airport Substation
5 Barger Substation
6 Hillaire Substation
7 Crow Substation
8 Coburg Substation
9 Bloomberg Substation
10 Goshen Substation
11 Irvington Substation
Table 8
SUB Planned Electrical S stem 1m
Project Project NameIDescription
Number
12
13
14
15
16A
16B
rovement Pro. ects
Glenwood Substation
Marcola Road Substation
East S rin field to Thurston Transmission Line
Thurston to Marcola Road Transmission Line
Jas er Road to 10 Street Extension (alternative A)
Jas er Road to 10 Street Extension (alternative B)
Solid Waste
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 II).
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
31
.
--------~-
.
!l:ugene-:;iprlngtield Public Facilities and Services Plan
Planned Water Facilities
Projects are described in Tables 1 and 2.
Key
. Proposed Source
. Proposed Reservoirs
. Proposed Pump Stations
c:::J City Limits
- Urban Growth Boundary (UGB)
Metro Plan Boundary
Urban Reserve
~
Proposed Transmission Lines
12" or larger
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysi5
Periodic Review Study.
! 107
I E
1
I
123
Project Number (see Tables 1 and 2)
E
Eugene Water & Electric Board (EWEB)
\
~
L.oot I
[\,',,'\ ?-~I .
\, " \ I
""'" ~! ~
. ~I OJ
~I ~
5
Springfield Utility Board (SUB)
;;j'
~I
il
15t^vt.
"'I
1\
I" !
.; West 11th Ave. I'
ill ~ /-,
il! , I Amaze' I~ I' ','
11 1 ~j I '(
" ; ---J-/ / (- 7 I '
T- i / 1 ) I
I I \ "09 ;
jJ i ( I
, I
~
(
~
North
-,
Note5:
1. Facilities shown outside the UGB cannot be located as shown
without first obtaining Lane County land use approval.
.
July 2000
2. The identification of projects on this map does not confer
rights to a groundwater source.
Scale
o
2 3 miles
.
~-
.
.
.
Eugene-
pringfield ublic Facilities and
Planned Wastewater Facilities
ervices Plan
Projects are described in rabies 3 and 4.
Key
+
CJ
Proposed Pump Stations
Proposed Wastewater Lines of 24"
or larger
City Limits
Urban Growth Boundary (UGB)
Metro Plan Boundary
Urban Reserve
-
-
I
I
r
!
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysis
Periodic Review Study.
: :
.......:
'-~~
\,----------_.--....-'- /-.
Royal Av~.
I ~
;;i I ~
~I ~
~I ~
/'---/
!
~
North
--r
Note5:
1. Facilities shown outside the UGB cannot be located as shown
without first obtaining Lane County land use approval.
July 2000
2. The general locations of facilities are shown on this map.
Exact project locations are determined throu{,jh local
o
2 :3 miles
.
b.......d _
C__I_
.
Pollutant Discharge Elimination Syst~~"p~~'~itf~~ L~~~C~u-~ty'~~ith-~'-"
Endangered Species Act. In addition, implements proposed Metro Plan
Policy G. 18, which calls for the cities and Lane County to adopt a strategy
to address specific stormwater issues between the city limits and the UGB.
l:ugene-;::tprlngTlela tlUDllC ~aCllltles ana ~ervlces I"'lan
Planned Stormwater Facilities
Projects are described in Tables 5 and 6.
Key
Ai r-tRd.
."."~. Drainage/Channel Improvements and/or
Piping Systems 36" or larger
@ Proposed Detention Ponds
A Proposed Outfalls
@ Proposed Water Quality Projects
""'" Waterways and Open Systems
c:::J City Limits
- UGB
-t Metro Plan Boundary
Urban Reserve
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysis
Periodic Review Study.
.
~
North
-r-
Notes:
1. Facilities shown outside the UGB cannot be located as
shown without first obtaining Lane County land use approval.
July 2000
.
2. The general locations offacilities are shown on this map.
Exact project locations are determined through local
processes.
o
2
:3 miles
.
~
lC.__I_
.
I:.ugene-::iprlngtleld Public Facilities and
Planned Electrical Facilities
ervices Plan
Projects are described in Tables 7 and 8.
Key
#- Existing Electrical Substation
a Proposed Electrical Substation
11I11 Proposed Electrical Transmission Lines
E Eugene Project
S Springfield Project
[=:J City Limits
- Urban Growth Boundary (UGB)
Metro Plan Boundary
Urban Reserve
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysis
Periodic Review Study.
(
/
/
i
\
.
--~
,//"'---
~j_._,
.-/'
/-
{
~
North
--r
.
Notes:
1. Facilities shown outside the UGB cannot be located as shown
without first obtaining Lane County land use approval.
July 2000
2. The general locations of facilities are shown on this map.
Exact proiect locations are determined throuGlh local
o 1
~-
2 :3 miles
.
Scale
.
.
.
.
.
III. 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 out 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 in
Metro Plan Chapter III-G, as well as movement and amendment of polices and definitions in
other chapters of the Metro Plan. The proposed order is shown below with findings and policies
proposed for deletion listed first, followed by the amendment or amendments that replace them.
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. These 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 III-G. Public Utilities, Services, and Facilities Element
A proposed rewrite of the introductory text to this element follows this struck-out existing text.
This rewrite provides the context for current local policy and practice and reflects changes in
state law.
c.
Public Utilities, Services, and Facilities Element
This element considers the provision of water, seV/ers, po'.ver, education, public safety, and
other programs the Eugene Springfield metropolitan area needs to function properly. For
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
41
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 grO't'ith boundary, little or no
development is expected to occur as compared to areas \vithin the urban growth boundary.
As the metropolitan area grows in population and area, the demand for these services "vill
increase substantially, requiring careful and coordinated planning and management. The
public's investment in and scheduling of these public facilities and programs should be
vie'.ved as one of the 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 '....ill
require at least the minimum level of key urban service at the time deyelopment 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 v:ith
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 county'.vide. These include health and social services, solid 'Naste
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, Eugone, and Springfield, other key urban services are provided. An example of
this is the County Service District, 'Nhich 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
proper operation, improvement, and expansion of key urban services in line '.'/ith the
compact urban growth form and urban service area concept of the General Plan.
.
* See Policies 7 and g on Page II B-1.
In planning for provision of key urban services, it is useful to keep in mind the distinction
between the "current urban service area," where a minimum level of urban services is
available or will be v:ithin the near future, and the "projected urban service area," which is
the estimated area 'Nithin which son'ices will be needed to provide for development needs
.
42
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
>
.
.
.
. .
over the long term. It is necessary to provide key urban services in a sequential manner
that recognizes the difference betv..een 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 .^~ppendix .\. Generally,
construction of projects is based upon the phasing portion of the Public Facilities Plan, but
actual 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 ^ 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 ..",ill be made from time to
time in conjunction '.vith the semiannual amendment and update processes; those changes
can be made through the budgeting and capital improvement processes, and do not
necessitate amendments to 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 MetropolitaR Plan, changes to the Public Facilities Plan
Technical Report can occur at a later time during semi annual amendment and update
processes. (Metro Plan, page III-G-l)
G.
Public Facilities and Services Element
This Public Facilities and Services Element orovides direction for the future orovision of
urban facilities and services to olanned land uses within the Plan boundary.
The availability of oublic facilities and services is a key factor influencing: the location
and densitv of future develooment. The oublic's investment in. and scheduling: of. oublic
facilities and services are a maior means of imolementing: the Metro Plan. As the
oooulation of the Eug:ene-Soring:field area increases and land develooment oatterns
cham!e over time. the demand for urban services also increases and chanQes. These
chang:es reauire that service oroviders. both oublic and orivate. olan for the orovision of
services in a coordinated manner. using: consistent assumotions and oroiections for
oooulation and land use.
The oolicies in this element comoliment Metro Plan Chavter II-A: Fundamental
Princivles and Chavter II-B: Growth Manaflement. Consistent with the orinciole of
comoact urban Qrowth orescribed in Chaoter II. the oolicies in this element call for future
urban water and wastewater services to be orovided exclusively within the urban Qrowth
boundary. This oolicy direction is consistent with Statewide PlanninQ Goal 11. "To olan
and develoo a timely. orderlv and efficient arrang:ement of oublic facilities and services to
serve as a framework for urban and rural develooment." On urban lands. new
develooment must be served bv at least the minimum level of key urban services at the
time develooment is comoleted and. ultimatelv. by a full ranQe of key urban services. On
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
43
rural lands within the Plan boundarv. develooment must be served by rural levels of
service. Users of facilities and services in rural areas are soread out l!eol!raohically. .
resultinl! in a hil!her oer-user cost for some services and. often. in an inadeouate revenue
base to suooort a hil!her level of service in the future. Some urban facilities mav be
located or manal!ed outside the urban l!rowth boundarv as allowed by state law. but only
to serve develooment within the urban l!rowth boundary.
Urban facilities and services within the urban l!rowth boundary are orovided bv the Citv
of EUl!ene. the City of Sorinl!field. Lane County. EUl!ene Water & Electric Board
(EWEB). the Sorinl!field Utilitv Board (SUB)' the Metrooolitan Wastewater
Manal!ement Commission (MWMC). electric coooeratives. and soecial service districts.
Soecial service districts orovide schools and bus service. and. in some areas outside the
cities. thev orovide water. electric. fire service. or Darks and recreation service. This
element orovides l!uidelines for soecial service districts in line with the comoact urban
develooment fundamental orinciole of the Metro Plan.
This element incomorates the l!oals. findinl!s. and oolicies in the EUf!ene-Svrimdield
Metrovolitan Area Public Facilities and Services Plan (Public Facilities and Services
Plan>. adooted as a refinement to the Metro Plan. The Public Facilities and Services
Plan orovides l!uidance for oublic facilities and services. includinl! olanned water.
wastewater. stormwater. and electrical facilities. As reouired by Goal 11. the Public
Facilities and Services Plan identifies and shows the l!enerallocation 7 of the water.
wastewater. and stormwater oroiects needed to serve land within the urban l!rowth
boundary.8 The Public Facilities and Services Plan also contains this information for
electrical facilities. althoul!h not reauired to bv law. The oroiect lists and maDs in the
Public Facilities and Services Plan are adooted as Dart of the Metro Plan. Information in
the Public Facilities and Services Plan on oroiect ohasinl! and costs and decisions on
timinl! and financinl! of oroiects are not Dart of the Metro Plan and are controlled solely
bv the caoital imorovement orol!ramminl! and budl!et orocesses of individual service
oroviders.
.
This element of the Metro Plan is orl!anized bv the followinl! tooics related to the
orovision of urban facilities and services. Policy direction for the full ranl!e of services.
includinl! wastewater service. mav be found under anv of these tooics. althoul!h the first
tooic. Services to Develooment Within the Urban Growth Boundary. is further broken
down into sub-catel!ories.
. Services to Develooment Within the Urban Growth Boundary
. Planninl! 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 III-F and in the Eugene-Springfield Transportation
System Plan (TransPlan).
.
44
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
. Electricity
. Schools
. Solid Waste
· Services to Areas Outside the Urban Growth Boundary
· Locating: and Manag:ing: Public Facilities Outside the Urban Growth Boundary
. Financing:
The aoolicable finding:s and oolicies are contained under each tooic heading:.
The oolicies listed orovide direction for oublic and orivate develoomental and orog:ram
decision- making: reg:arding: urban facilities and services. Develooment should be
coordinated with the olanning:. financing:. and construction of key urban facilities and
services to ensure the efficient use and exoansion of these facilities.
Goals
1. Provide and maintain public facilities.utilities and, services, and facilities in anorderly
ami efficient. and environmentally resoonsible manner~ (Metro Plan, page III-G-4)
2. Provide oublic facilities and services in a manner that encourag:es orderly and seauential
g:rowth.
Obiediyes (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 offindings or policies.
1. Furnish guidelines for public facility programming and decision making that will result in
lower public and private expenditures.
2. Provide public utilities, services, and facilities to serve existing development and closely
coordinate them '.vith the land use elements of the Gerwral Plan as a means of encouraging
orderly and sequential grO'.vth. .
3. Reduce and, if possible, eliminate the problems created by overlapping service areas and/or
illogical sef','ice boundaries.
1. Optimize the utilization of existing facilities.
5. Generally reduce public subsidy for utilities and facilities in ne','.. development.
6. Proviae at least the minimum level of key urban services to uIlurbun development ,;,'ithin
the metropolitan area.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
45
7.
Except for rural fire protection districts and standard rural electrification systcms,
discourage extcnsion or expansion of single services, utilities, or facilitics to outlying areas.
.
8. Strive for continued cooperation betv/een major institutions, such as universities and
hospitals, and local planning agencies.
Services to Develonment Within the Urban Growth Boundarv: Plannin!! and
Coordination
Findin2S
1. Urban expansion within the urban g:rowth boundarv is accomolished throughin filling
within and adjacent to existing development iFlside the current urban service area and in an
orderly, unscattcred fashion in-filL redevelooment. and annexation of territory which can
be served with a minimum level of key urban services. This permits new development to
utilize use existing utilitiesfacilities and, services .,..-afld-facilities or those which can be
easily extended, minimizing the public cost of premature service extensionextending: urban
facilities. (Metro Plan, page III-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 Boundary
and Locatinf! and Managinf! Public Facilities Outside the Urban Growth Boundary for related
findings and policies. This amendment also deletes reference to urban service area because this .
term has the same meaning as urban f!rowth boundary, causing confusion.
8. The population projections in the Eugene Springfield Metropolitan j\rca Waste Treatment
Management Alternatiyes Report (208 "Facilities" Plan) are compatible with those for the
metropolitan area. (Metro Plan, page III-G-2)
18. State lav,' requires development of a Public Facilities Plan to coordinate implemcntation of
plaFlFled water, sanitary se'Ner, storm sewer and transportation projects. (Metro Plan, page
III-G-4)
2. In accordance with Statewide Planning: Goal 11 and Oreg:on Administrative Rules in
Chaoter 660. the EUflene-Svrimdield Metrovolitan Area Public Facilities and Services Plan
(Public Facilities and Services Plan) identifies iurisdictional resoonsibilitv for the
orovision of water. wastewater. and stormwater;: describes resoective service areas and
existing: and olanned water. wastewater. and stormwater facilities,;; and contains olanned
facilities maos for these services. Electric system information and imorovements are
included in the Public Facilities and Services Plan. althoug:h not reauired by state law.
Local facility master olans and refinement olans orovide more soecific oroiect information.
.
46
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
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.
~~. Urban services within the metrooolitan urban l!rowth boundarv are provided te-tfle
metropolitan area by the City of Eugene, the City of Springfield, Lane County, EUl!ene
Water & Electric Board (EWEB). Sorinl!field Utilitv Board (SUB)' the Metrooolitan
Wastewater Manal!ement Commission (MWMC). electric coooeratives. and soecial service
districts. public and quasi public utilities, special service districts, and by joint cooperative
agreements. (Metro Plan, page III-G-2)
The above finding amendment clarifies the range of service providers.
1. Portions of the urban aroa lack certain key urban services. (Metro Plan, page III-G-2)
5. The cost of providing even basic key services, utilities, and facilities to existing and future
development in the metropolitan area is significant. (Metro Plan, page III-G-3)
4.
The Public Facilities and Services Plan finds that almost all areas within the city limits of
EUl!ene and Sorinl!field are served or can be served in the short-term (0-5 years) with
water. wastewater. stormwater. and electric service. Exceotions to this are stormwater
service to oortions of the Willow Creek area and southeast Sorinl!field and full water
service at some hil!her elevations in EUl!ene's south hills. Service to these areas will be
available in the lonl!-term. Service to all areas within citv limits are either in a caoital
imoroyement olan or can be extended with develooment.
5. With the imorovements soecified in the Public Facilities and Services Plan oroiect lists. all
urbanizable areas within the EUl!ene-Sorinl!field urban l!rowth boundary can be served with
water. wastewater. stormwater. and electric service at the time those areas are develooed.
In l!eneral. areas outside citv limits serviceable in the lonl!-term are located near the urban
l!rowth boundarv and in urban reserves. orimarilv in River Road/Santa Clara. west
EUl!ene's Willow Creek area. south Sorinl!field. and the Thurston and Jasoer-Natron areas
in east Sorinl!field.
The above new findings update and provide specific information about service availability in the
urban growth boundary as discussed in the Public Facilities and Services Plan.
6. OAR 660-011-005 defines oroiects that must be included in oublic facilitv olan oroiect lists
for water. wastewater. and stormwater. These definitions are shown in the keys of Planned
Facilities Maos 1. 2. and 3 in this Public Facilities and Services Plan.
7.
In accordance with ORS 195.020-080. EUl!ene. Sorin!!field. Lane County. and soecial
service districts are reQuired to enter into coordination al!reements that define how olanning
coordination and urban services (water. wastewater. fire. oarks. ooen soace and recreation.
and streets. roads and mass transit) will be orovided within the urban l!rowth boundary.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
47
The above new findings clarify current state law related to the need for changes to the Public
Facilities and Services Plan and coordination agreements.
.
~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 needs. (Metro Plan, page III-G-3)
2J. In a fe'.v instances there is overlap in public services, utilities, and facilities, or illogical
Duolication of service~ boundaries, that prevents the most economical distribution of
oublic facilities and those utilities, services, and facilities. (Metro Plan, page III-G-2)
The above amendments are proposed for clarification only.
10. As discussed in the Public Facilities and Services Plan. a maioritv of Nodal Develooment
Areas orooosed in TransPlan are serviceable now or in the short-term. The City of
Eu!:!ene's adooted Growth Mana!:!ement Policy #15 states: "Tar!:!et oublicIv-financed
infrastructure extensions to suooort develooment for hi!:!her densities. in-fill. mixed uses.
and nodal develooment. "
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
6.
In addition to physical, economic, energy, and social considerations, timiflg afld location
of urban development within metropolitan area shall be based upon the current or
imminent availability of a minimum le'lel of key urban services. (Metro Plan, page III-G-
2)
.
G.l 1. Extend the minimum level and full ran!:!e of key urban facilities and servicesFacility and
program planning in the metropolitan area shall use the General Plan as a basis for
decisions to ensure that the needs of the motropolitan area are met in an orderly and
efficient manner consistent with the l!rowth mana!:!ement oolicies in Chaoter II-B.
relevant oolicies in this Chaoter. and 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 and full range of key urban facilities and services.
.
48
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
G.2+&. Use +the water, sanitary and storm se'Ner Planned Facilities Maps of the Public Facilities
and Services Plan sections of the Metropolitan Public Facilities Plan shall serve as the
basis for guiding to Imide the general location of water, sanitary wastewater, iHWi
stormwatersev/er . and electrical oroiects improvements in the metropolitanregion area.
Use local facility master olans. refinement olans. and ordinances as the guide for detailed
olanning and oroiect imolementation. (Metro Plan, page III-G-7)
The above policy amendment clarifies that the Public Facilities and Services Plan maps guide
the J!enerallocation of planned facilities and that local plans and ordinances are used to
detennine the exact location of these projects.
G.3 -l-9.Modifications and aAdditions to or deletions from the project Iist~ in the Public Facilities
and Services Plan for water. wastewater. and stormwater oublic facilitv oroiects or
significant change~ to project location from that described in the Public Facilities and
Services Plan maos L 2. and 3. requires amending the Public Facilities and Services
Plan. exceot for the following:
1) Public facility oroiects not included in the Public Facilities and Services Plan
oroiect lists or maos for which unanticioated funding has been obtained: or
2) Modifications to a oublic facility oroiect which are minor in nature and do not
significantlv imoact the oroiect's general descriotion. location. sizing. caoacity. or
other general characteristic of the oroiect: or
3)
Technical and environmental modifications to a oublic facility which are made
oursuant to final engineering on a oroiect: or
4) Modifications to a oublic facility oroiect which are made oursuant to findings of
an Environmental Assessment or Environmental Imoact Statement conducted
under regulations imolementing the orocedural orovisions of the National
Environmental Policv Act of 1969 or any federal or State of Oregon agencv
oroiect develooment regulations consistent with that act and its regulations.
G.4 44.The cities and Lane Countv Special agencies andshall coordinate with EWER SUB. and
soecial service districts operating in the metropolitan area,and Springfield, Eugene, and
Lane County shall to 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. (Metro Plan, page III-G-6)
The above policy amendment is intended to improve the clarity of this policy calling for
intergovernmental coordination.
G.59. The cities shall continue ioint olanning coordination with mMajor institutions, such as
universities and hospitals,shall continue joint planning coordination with local planning
agencies. due to their relatively large imoact on local facilities and services. (Metro Plan,
page III-G-6)
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
49
. ,
The above policy amendment recognizes the importance of coordination with major institutions .
due to their relatively large impact on public facilities and services.
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 withSpringfield and Eugene the affected iurisdictions. (Metro Plan, page
III-G-5)
The above policy amendment clarifies that coordination should occur with the city or county
affected by the boundary change.
12. Encourage the use of water treatment, solid waste, and sewage disposal systems that are
energy efficient and environmentally sound. (Metro Plan, page III-G-6)
The above policy is proposed for deletion because it is too general and restates proposed Goall.
G.7 Service oroviders shall coordinate the orovision of facilities and services to areas tafl!eted
by the cities for hi~her densities. infill. mixed uses. and nodal develooment.
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. .
G.8 The cities and county shall coordinate with cities surroundin~ the metrooolitan area to
develoo a ~rowth mana~ement strate~y. This strate~v will address re~ional oublic facility
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 to implement this policy over the next few
years.
Services to Develonment Within the Urban Growth Boundarv: Water
Findin2S
11. Sorin~field relies on 2:roundwater for its sole source of water. EU2:ene Water & Electric
Board's (EWEB) water source is the McKenzie River. and EWEB is develooim!
~roundwater sources. The identification of oroiects on the Public Facilities and Services
Plan olanned facilities mao does not confer ri~hts to a ~roundwater 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
.
.
.
Policies
G.9 M.Eugene and Springfield and their respective utility branches, Eugene Water & Electric
Board and Springfield Utility Board, shall ultimatelv be the water and clcctrical 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.1O Continue to take oositive steos to orotect Q:roundwater suoolies. The cities. county. and
other service oroviders shall manaQ:e land use and oublic facilities for l!roundwater-
related benefits throuQ:h the imolementation of the Svrimdield Drinkinf! Water Protection
Plan and other wellhead orotection olans. ManaQ:ement oractices instituted to orotect
Q:roundwater shall be coordinated amonQ: the City of SorinQ:field. Citv of Eue:ene. and
Lane Countv.
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.ll +7. Ensure that In the planning for water main extensions within the urban growth
boundary, communications '.\'ith fire districts, through thc refcrral proccss, shall occur
to ensure that extensions include adequate consideration of fire hydrant needs 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.
0.12 H. Sorindield Utilitv Board. Eue:ene Wateraml& Electric Board. and Rainbow Water
District the water oroviders that currentlv control a water source. The utilities
responsible for provision and deli 'lory 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. (Metro Plan, page Ill-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 need for a metropolitan-wide water master program should continue to be examined.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
51
. ,
Services to Develooment Within the Urban Growth Boundarv: Stormwater .
Findin2S
12. Historically. stormwater systems in EUl!ene and Sorinl!field were desil!ned orimarilv to
control floods. The 1987 re-authorization of the federal Clean Water Act reauired. for the
first time. local communities to reduce stormwater oollution within their municioal storm
drainal!e systems. These reauirements aoolied initiallv to the City of EUl!ene. and
subseauent amendments to the Act extended these reQuirements to the Citv of Sorinl!field
and Lane County.
13. Administration and enforcement of the Clean Water Act stormwater orovisions occur at the
state level. throul!h National Pollutant Discharl!e Elimination Svstem (NPDES) oermittinl!
reauirements. Aoolicable iurisdictions are reQuired to obtain an NPDES stormwater oermit
from the Orel!on Deoartment of Environmental Ouality (DEO). and oreoare a water aualitv
olan outlininl! the Best Manal!ement Practices CBMPs) to be taken over a five-vear oermit
oeriod for reducinl! stormwater oollutants to "the maximum extent oracticable."
14. Stormwater auality imorovement facilities are most efficient and effective at interceotinl!
and removinl! oollutants when thev are close to the source of the oollutants and treat
relatively small volumes of runoff.
15. The Clean Water Act reauires states to assess the Qualitv of their surface waters every three .
Years. and to list those waters wllf€.flthat do not meet adooted water auality standards. The
Willamette River and other water bodies have been listed as not meetinl! the standards for
temoerature and bacteria. This will reauire the develooment of Total Maximum Dailv
Loads (TMDLs) for these oollutafltsconditions. and an allocation to ooint and non-ooint
sources.
The above new findings reflect significant changes in federal stonnwater policy and local
knowledge and practice over the past ten years.
16. The listinl! of Sorinl! Chinook Salmon as a threatened soecies in the Uooer Willamette
River reauires the aoolication of Endanl!ered Soecies Act (ESA) orovisions 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 throul!h channelization and
revetment of river banks. non-ooint source oollution. alterations of natural hvdrol!raoh bv
increased imoervious surfaces in the basin. and del!radation of natural functions of rioarian
lands due to removal or alteration of indil!enous vel!etation.
The above new finding reports on the potential impacts recent ESA rulings may have on how
local stonnwater services are provided.
.
52
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
17. There are many advanta!!es to keeoin!! channels ooen, includin!!, at a minimum. natural
biofiltration of stormwater oollutants; !!reater abilitv to attenuate effects of oeak stormwater
flows; retention of wetland, habitat. and ooen soace functions; and reduced caoital costs for
stormwater facilities.
The above new finding supports policy to retain waterways in an open condition for their
stormwater quality benefits.
18. An increase in imoervious surfaces, without miti!!ation, results in hi!!her flows durin!! oeak
storm events, less oooortunity for rechaf!!in!! of the aquifer. and a decrease in water qualitv.
The above new finding supports policy to minimize impervious suiface for beneficial stormwater
affects.
19. Stormwater svstems tend to be !!ravitv-based svstems that follow the slone of the land
rather than oolitical boundaries. In manv cases, the natural draina!!ewavs such as streams
serve as an inte!!ral Dart of the stormwater conveyance svstem.
20. In !!eneraL there are no oro!!rams for stormwater maintenance outside the Em!ene and
SDrin!!field citv limits, exceDt for the Lane County Roads Pro!!ram. State law limits
County road funds for stormwater Droiects to those located within the oublic ri!!ht-of-way.
The above new findings support policies for, and acknowledge, obstacles to a coordinated
approach to preventing filling of natural drainageways within the urban growth boundary.
21. Fillin!! in desi !!nated floodolain areas can increase flood elevations above the elevations
Dredicted bv FEMA models, because the FEMA models are tyoicallv based only on the
extent of develooment at the time the modelin!! was conducted and do not take into account
the ultimate buildout of the draina!!e area. This ooses risks to other orooerties in or
adiacent to floodDlains and can chan!!e the hvdro!!raoh of the river.
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.13~. In order to !improve surface and !!round-water quality and quantity in the metropolitan
area, local gO'lernments shall consider kdeveloping 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;
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
53
c.
Regulate site planning for new development and construction to better control
drainage and erosion and to manage ore- and oost-construction storm runoff~
includin2: erosion. velocitv. oollutant 10adin2:. and draina2:e;
.
d. Increase storage and retention and natural filtration of storm runoff to lower and
delay peak storm flows and to settle out oollutants orior to dischar2:e into
re2:ulated waterwavs;
e. ReQuire on-site controls and develooment standards. as oractical. to reduce off-
site imoacts from stormwater runoff:
fe. utilize uUse natural and simple mechanical treatment systems to provide
treatment for ootentiallv contaminated runoff waters;
gf. Reduce Reduce street-related water quality and quantity problems;
bg. minimize use rRe2:ulate use and reQuire containment and/or oretreatment of toxic
substances; ami
ill. tInclude containment measures in site review standards to minimize the negative
effects of chemical and petroleum spills-;-: and
1.
eConsider imoacts to 2:round-water Qualitv in the desil.!n and location of drv wells.
(Metro Plan, page III-C-lO)
.
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 Imolement chan2:es to stormwater facilities and mana2:ement oractices to reduce
pollutants re2:ulated under the Clean Water Act and to address the reQuirements of the
Endan2:ered Soecies Act.
The above new policy is proposed to support local stormwater policy and practice to carry out
federal requirements.
G.15 Consider wellhead orotection areas and surface water suoolies when olannin2: stormwater
facilities.
The above new policy requires consideration of groundwater and surface water when planning
stormwater facilities.
.
54
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
G.16 Manae:e or enhance waterwavs and ooen stormwater systems to reduce water auality
imoacts from runoff and to imorove stormwater conveyance.
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 Include measures in local land develooment ree:ulations that minimize the amount of
imoervious surface in new develooment in a manner that reduces stormwater oollution
and is comoatible with Metro Plan oolicies.
The above new policy calls for the cities to minimize impervious surface in new development for
storm water benefits.
G.18 The cities and Lane Countv shall adoot a stratee:v for the unincoroorated area of the urban
e:rowth boundarv to: orevent the filline: of natural drainae:e channels. reduce the nee:ative
effects of filline: in floodolains. and to ensure necessary ooerations and maintenance of
these channels.
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.
G.19 Maintain flood storae:e caoacitv within the floodolain. to the maximum extent oractical.
throue:h measures that may include reducine: imoervious surface in the floodolain.
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 Boundarv: Electricitv
Findin2S
22. Accordine: to local municioal utilities. efficient electrical service is often accomolished
throue:h mutual back-uo ae:reements. and inter-connected svstems are more efficient than
isolated svstems.
The above new finding provides information that supports inter-connected electrical systems.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
55
Policies
.
G.20 The electric service Droviders will a2ree which orovider will serve areas about to be
annexed and inform the cities who the service orovider will be and how the transition of
services. if anv. will occur.
The above new policy responds to the need to detennine 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 Develooment Within the Urban Growth Boundarv: Schools
Findin2s
23. ORS 195.110 requires cities and counties to include. as an element ofiffi--their
comDrehensive olans. a school facilitv ulan for hi2h 2rowth districts Dreoared by the district
in coooeration with the citv or county: and for the citv or county to initiate the olannin2
activity. The law defines hi2h 2rowth districts as those that have an enrollment of over
5.000 students and an increase in enrollment of six oercent or more durin2 the three most
recent school years. At Dresen!. there are no hi2h 2rowth school districts in the urban
2rowth boundarv.
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 197.296(4)(a) states that when the urban 2rowth boundary is amended to orovide
needed housin2. "as oart of this orocess. the amendment shall include sufficient land
reasonablv -necessarv to accommodate the sitinl! of new Dublic school facilities. The need
and inclusion of lands for new oublic school facilities shall be a coordinated orocess
between the affected oublic school districts and the local 20vernment that has the authoritv
to aODrove the urban 2rowth boundary. "
The above new finding quotes state law that requires coordination with school districts in
amending urban growth boundaries.
10. Due to the increase of childbearing persons as a percent of the total population and the
leveling off from a dmvnward trend of fertility rates, o"lerall metropolitan school
enrollments are projected to increase both in terms of total number and in the rate of
grov:th through the rest of this century. However, projected school cflfollment increases
will not be 6"1eflly distributed among the three metropolitan school districts. The Eugene
district will probably continue to decline into the early 1980's before beginning to incn~ase;
Springfield, Bethel, and pri'late schools will likely folIo'.': the overall metropolitan trend.
(Metro Plan, page III-G-2) .
56
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
15. There are no significant increases anticipated in either the overall enrollment or work force
at the University of Oregon. Ne\-y facilities are planned to meet the needs of the various
departments and not to create additional capacity. (Metro Plan, page III-G-4)
16. Lane Community College plans no neVi facilities on the main campus beyond those
included in the School Master Plan. Increased enrollment will be accommodated through
expansion of off campus programs. (Metro Plan, page III-G-4)
25. Enrollment Dfoiections for the five oublic school districts in the metrooolitan area and the
Universitv of Orel!on and Lane Community Collel!e are not consistent. Bethel School
District #52 and the Universitv of Orel!on exoect increases while Sorinl!field and EUl!ene
School Districts and LCC are exoeriencinl! nearlv flat or declininl! enrollments.
Enrollment is increasinl! fastest in the elementarv and hil!h school attendance areas near
new develooment.
The above deletions of existing findings and proposed new finding are intended to update
enrollment trends and projections.
2~. Short-term fluctuations in school attendance are addressed throul!h the use of
~Adjustmentsed te 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 ne'N school
construction. School fundinl! from the state is based on student enrollment for school
districts in the State of Orel!on. This fundinl! oattern affects the willinl!ness of districts to
allow out-of-district transfers and to adiust district boundaries. Adiustments in district
boundaries mav be feasible where there is no net loss/l!ain in student enrollments
between districts. (Metro Plan, page III-G-3)
The above finding amendment reflects changes in school district policy resulting from changes in
how schools are funded.
13. Elementary and community schools represent important features to residential
neighborhoods, and a lack of such facilities can reduce the livability of an area in terms of
neighborhood needs. (Metro Plan, page III-G-2)
11. 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. (Metro Plan, page III-G-2)
27-:ll. Creatinl! or retaininl! small. neil!hborhood schools reduces the need for businl! and
orovides more oooortunitv for students to walk or bike to school. Oualitv smaller schools
mav allow more oarents to stav in established neil!hborhoods and to avoid movinl! out to
new subdivisions on the urban frinl!e or to bedroom communities. However. growth
patterns do not always respect school district boundaries. For example, natural cycles of
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
57
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. (Metro Plan, page III-G-3)
28. Lonl!-ranl!e enrollment forecasts determine the need to either build new schools. exoand
existinl! facilities. or close existinl! schools. Fundinl! restrictions imoosed bv state law
and some orovisions in local codes mav discoural!e the retention and redevelooment of
neil!hborhood schools. Limits imoosed bv state law on the use of bond funds for
ooerations and maintenance make the construction of new. lower maintenance buildinl!s
oreferable to remodelinl! existinl! school buildinl!s. In addition. if existinl! schools were
exoanded. some school sites mav not meet current local oarkinl! and 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. Combininl! educational facilities with local Dark and recreation facilities orovides financial
benefits to the schools while enhancinl! benefits to the communitv. The Meadow View
School and adiacent City of EUl!ene community Dark is an examole of shared facilities.
The above finding speaks to one of the opportunities presented by cooperation between the
school districts and the cities.
.
Policies
G.21-l--l-.The cities shall initiate a orocess with school districts within the urban l!rowth boundary
for coordinatinl! land use and school olanninl! activities. The cities and school districts
shall examine the followinl! in their coordination efforts:
a. The need for new oublic school facilities and sufficient land to site them:
b. How ooen enrollment oolicies affect school location:
c. The imoact of school buildinl! heil!ht and site size on the buildable land suoolv:
d. The use of school facilities for non-school activities and aoorooriate reimbursement
for this use:
e. The imoact of buildinl! and land use codes on the develooment and redevelooment of
school facilities:
f. Systems develooment charl!e adiustments related to neil!hborhood schools: and
~H-: The school districts shall address The possibility of adjusting boundaries. when
practical and when total enrollment will not be affected. where they do Hot 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, page III-G-
6)
.
58
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
The above policy amendments 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.
8. Efforts shall be made to mitigate the impact of residential grov.th on the metropolitan area's
schools. Cities shall encourage a mix of d\velling unit typcs and phasing of single family
residential construction. School districts shall continue to meet peak school child
enrollment demand through a variety of means, thus possibly reducing or postponing the
need for new, permanent school facilities. (Metro Plan, page III-G-6)
G.22 roo -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. keeD nei 2:hborhood schools ODen and to retain
schools sites in Dublic ownershiD followin2: school closure. (Metro Plan, page III-G-6)
The above deleted policy and policy amendment are further explained in the following example
implementation measures:
1. Encourage the retention of magnet arts 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 of Universitv of Ore2:on and Lane Community Colle2:e facilities in
central city areas to increase oDDortunities for Dublic transit and housin2: and to retain
these schools' attractiveness to students and facultv.
The above new policy supports these higher education facilities in central city areas for their
quality of life benefits.
Services to Develooment Within the Urban Growth Boundarv:
Solid Waste
Findin2S
30. Statewide Plannin2: Goal 11 reauires that "To meet current and lon2:-ran2:e needs. a
Drovision for solid waste disDosal sites. includin2: sites for inert waste. shall be included in
each Dlan."
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
59
Policies
G.2~. The Lane Countv Solid Waste Mana2ement Plan. as uodated. shall serve as the 2uide
for the location of solid waste sites. includin2 sites for inert waste. to serve the
metrooolitan 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 III-G-6)
.
23. Prior to the completion of the next Plan Update, the Lane Comity Solid 'Naste
Management Plan shall be revised to reflect the requirements of the Recycling
Opportunity "\ct and changes to the inventory of solid '.vaste sources and sites. (Metro
Plan page III-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 Boundarv
Findin2S
311. Providin2 When key urban services, such as water, to areas are provided to areas outside
the projected urban service area urban 2rowth boundarv, increased increases pressure for
urban development in rural areas. occurs. This can encoura2e oremature develooment
outside the urban 2rowth boundarv at rural densities. increasin2 the cost of oublic facilities .
and services to all users of the svstems. (Metro Plan, page III-G-3)
The above finding amendments clarify the rationale for extending urban facilities exclusively
within the urban growth boundary.
32. Land aoolication of biosolids. treated wastewater. or cannery waste on a2ricultural sites
outside the urban 2rowth boundary for beneficial reuse of treated wastewater bvoroducts
2enerated within the urban 2rowth boundarv. and is more efficient and environmentallv
beneficial than land fillin2 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.
33-1-+. Lane Countv land use data show that. outside the urban 2rowth boundary. Within rural
areas, land uses consist of:
1) tlftese.- which are primarily intended for resource management; and
2) tlftese.- where development has occurred and are committed to rural development as
established through the exceptions process soecified in Statewide Plannin2 Goal 2.
(Metro Plan, page III-G-2)
The above finding supports policy to plan for rural levels of service outside the urban growth
boundary within the plan boundary. .
60
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
. Policies
0.25 ~. Wastewater Sewer and water service shall not be extended beyond Drovided outside the
urban growth boundary except to the followinQ: areas. and the cities mav reauire
consent to annex aQ:reements as a orereauisite to DrovidinQ: these services in anv
instance:
a. The Mahlon S'Neet Field '^1irport and the Regional Vlaste'Nater Sludge
Management Facility The area of the EUQ:ene Airoort desiQ:nated Government and
Education on the Metro Plan diaQ:ram: the Seasonal Industrial Waste Facilitv: the
ReQ:ional Wastewater Biosolids ManaQ:ement Facilitv: and, aQ:ricultural sites used
for land aDDlication of biosolids and cannerv bVDroducts. both public facilities
These sites serv~i€e 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 within the EUQ:ene-SDrinQ:field urban Q:rowth
boundarv that can only be remedied by extension of the service.
.
In addition, the cities may require annexation as a prerequisite to extending these
ser'.'ices in any instance under Drior obliQ:ations. water service shall be Drovided to land
within the dissolved water districts of Hillcrest. ColleQ:e Crest. Bethel. and Oakwav.
(Metro Plan, page III-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.
G.26 M Plan for the followinQ: lbevel~ of services for rural designations outside the urban
Q:rowth boundarv within the Metro Plan Boundarv:
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 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. (Metro Plan, page III-G-6,7)
The above policy amendment is intended to clarify that the local jurisdictions will plan for a
minimum rural level of service outside the urban growth boundary within the Plan boundary.
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
61
Locatin2: and Mana2:in2: Public Facilities Outside the Urban Growth
Boundarv
.
Findin2s
34. In accordance with Statewide Planning Goals and administrative rules. urban water.
wastewater and stormwater facilities mav be located on agricultural land and urban water
and wastewater facilities mav be located on forest land outside the urban growth boundarv
when the facilities exclusivelv serve land within the urban growth boundary. oursuant to
Oregon Administrative Rules (OAR) 660 Divisions 006 and 033.
35. In accordance with Statewide Planning Goals and administrative rules. water and
wastewater facilities are allowed in the oublic right-of-way of oublic roads and highways.
36. The Public Facilities and Services Plan Planned Facilities Maps show the location of some
olanned oublic facilities outside the urban growth boundarv and Plan boundary.
exclusively to serve land within the urban growth boundary. The ultimate construction of
these facilities will reauire close coordination with and oermitting by Lane County and
oossible Lane Countv Rural ComDrehensive Plan amendments.
37. State Planning Goal 5 and OAR 660-023-090 reauire state and local iurisdictions to
identify and orotect rioarian 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 orohibited.
Statewide Planning Goals orohibit locating school buildings on farm or forest 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 II for the general future location of such facilities.
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 exclusivelv serve land inside the urban
growth boundarv and there is no reasonable alternati Ye.
G.28 Locate urban water and wastewater facilities in the oublic right-of-way of oublic roads
and highways outside the urban growth boundary. as needed to serve land within the
urban growth boundary.
G.29 Facility oroviders shall coordinate with Lane Countv and obtain the necessarv countv
land use aoorovals to amend the Lane Countv Rural ComDrehensive Plan. as needed and
consistent with state law. to aoorooriatelv designate land for urban facilities located .
62
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
outside the Plan boundarv on the Public Facilities and Services Plan Planned Facilities
Maps:
G.30
The cities shall coordinate with Lane Count v on resoonsibility and authoritv to address
stormwater-related issues outside the Plan boundarv. includinl! outfalls outside the
Sorinl!field oortion of the urban l!rowth boundarv.
G.3l
Measures to orotect. enhance. or alter Class F Streams outside the urban l!rowth
boundarv. within the Plan boundarv shall. at a minimum. be consistent with Lane
County's rioarian 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.
G.32 New schools within the Plan boundarv shall be built inside the urban l!rowth boundary.
The above new policy is consistent with existing state law and Metro Plan growth management
policies.
Financin!!
Findin2S
39. ORS 197 .712(2)(e) states that the oroiect timinl! and financinl! orovisions of oublic facilitv
olans shall not be considered land use decisions.
The above new finding reflects existing state law on the financing and timing provisions of the
Public Facilities and Services Plan.
40. ORS 223.297 and ORS 223.229 (1) do not oermit the collection of local svstems
develooment charl!es (SDCs) for fire and emerl!encY medical service facilities and schools.
limitinl! revenue ootions for these services. Past attemots to chanl!e the law have been
unsuccessful.
The above new finding notes some of the limitations in state law on the use of SDCs for funding
certain public facilities and services.
41. Service oroviders in the metrooolitan area use SDCs to helD fund the followinl! facilities:
· Sorinl!field: stormwater. wastewater. and transoortation:
· Willamalane Park and Recreation District: oarks:
· Sorinl!field Utilitv Board. Rainbow Water District: water:
· EUl!ene: stormwater. wastewater. oarks. and transoortation: and
. EWEB: water.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
63
42. Ore2:on and California timber receiot revenues. a federally- funded source of countv road .
funds. have declined over the vears and their continued decline is exoected.
43. Re2:ular maintenance reduces 10n2:-term infrastructure costs by oreventin2: the need for
freQuent reolacement and rehabilitation. ORS 223.297 to 223.314 do not allow use of
SDCs to fund ooerations and maintenance.
The above new findings state the existing use of SDCs by local service providers and key funding
limitations and trends.
44. The assessment rates of EU2:ene. Sorin2:field. and Lane Count v are each different. creatin2:
ineQuitable financin2: of some infrastructure imorovements in the metrooolitan area.
The above new finding reflects a need for improved coordination on assessment of properties
that cross jurisdictional lines.
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 affected jurisdiction(s). (Metro Plan,
page III -G- 7)
~
Project timing and finaHcing modifications do Hot require amendment of the Public
Facilities Plan. Modifications should be reflected in the Public Facilities Plan at the
next regularly scheduled update. (Metro Plan, page III-G-7)
.
~ 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.
(Metro Plan, page III-G-7)
G.344.; Service oroviders will uodate In those portions of the urban sef','ice area v,'here the full
range of key urban services is not available, metropolitan area capital improvement
programming (planning, programming, and budgeting for service extension}-i-H-afl
orderly and efficient manner) shall be de','cloped and maintained. Such a coordinated
capital improvements program shall address geographic phasing re2:ularlv for those
oortions of the urban 2:fowth boundary where the full ran2:e of key urban services is not
available. (Metro Plan, page III-G-5)
The above policy amendments clarify how public facility financing occurs at the local level.
G.35 -l. ReQuire develooment to oav the cost. as determined bv the local iurisdiction. of
extendin2: urban facilities. In general, the amount of public subsidy for public utilities,
services, and facilities, includiRg schools in He',';' development, shall be reduced. This
does not preclude subsidy, where a development will fulfill goals and recommendations
.
64
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
of the Metro Plan and other aoolicable 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 of the Jirst part of the
Metropolitan Residential Land and Housing Element policy #A.8, Metro Plan, page IIl-A-6.
G.36 J. Continue to imolement aA system of user charges. SDCs. and other oublic financing
tools. where aoorooriate. to fund ooerations. maintenance. and for public services,
utilities, and facilities to cover operation costs and the improvement or replacement of
obsolete facilities or system exoansion. shall continue to be implemented, where
appropriate. (Metro Plan, page III-G-5)
G.37 Exolore other funding mechanisms at the local level to finance ooerations and
maintenance of oublic facilities.
G.38 Set wastewater and stormwater fees at a level commensurate with the level of imoact
on. or use of. the wastewater or stormwater service.
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 Countv will continue to coooerate in develooing assessment
oractices for inter-iurisdictional oroiects that orovide for eauitable treatment of
orooerties. regardless of iurisdiction.
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 I. Introduction
C. Plan Contents
Appendices
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 maos are reolaced bv
the oroiect lists and Planned Facilities Maps in Chaoter II of the EUQene-
SDrinQfield MetroDolitan Area Public Facilities and Services Plan),
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
65
Appendix B
Appendix C
Appendix D
List of Refinement and Functional Plans and Map of Refinement Plan
Boundaries
List of Exceptions and Maps of Site-Specific Exception Area Boundaries
Auxiliary Maps Showing the Following:
fi.re-Fire station locations
solid waste site
electrical substations and transmission lines
airport zones
urban Urban growth boundary
Greenway boundary
schoolsSchools
f*lI'*sParks
.
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 Ill-F. Transportation Element, revised through the TransPlan
update process.
Chapter II-B. Growth Management and the Urban Service .\rea
.
Policies
1. The urban service area concept l!rowth boundary and sequential development
shall continue to be implemented as an essential means to achieve compact urban
growth. The planning, programming, and financing for provision of all urban
services shall be concentrated inside the projected urban service area urban
l!rowth 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 1982, 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. Planning for 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.
.
66
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
2. FloodDlain delineations made bv local 2:overnments. where available. will be used
in Dlace of. or as an uDdate to. FEMA maDS to determine the location of the UGB
and to 2:uide land use decisions.
3. The UGB shall lie alon2: the outside ed2:e of existin2: and Dlanned ri2:hts-of-wav that
form a Dortion of the UGB so that the full ri2:ht-of-wav is within the UGB.
The above new policies are intended to clarify and provide consistent policy direction for
interpretation of the urban growth boundary relative to the floodplain and rights-of-way.
Subsequent policies will be renumbered.
21. 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. Thoy consist of sanitary sev/ers
wastewater service, stormwater service, solid waste management, 'Nater
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
v,'ords, not necessarily 'I/ithin '.valking distance of all students served). Paved
streets 'Nith adequate provision for storm\vater runoff and pedestrian travel,
meeting applicable local policies, are important, particularly in new
developments and along existing streets heavily used by pedestrians.
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 II-B-4)
10&. A full range of key urban facilities and serviceslO shall be provided to urban areas
according to demonstrated need and budgetary priorities. They include, in
addition to the minimum level of key urban facilities and services, urban public
transit, natural gas, storm drainage facilities, street lighting, libraries, local parks,
local recreation facilities and services, and health services. (Metro Plan, page II-
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 III-E. Environmental Design
2. Natural vegetation, natural water features, and drainageways shall be protected and
retained to the maximum extent practica!ele considering the economic, social,
9 See Chapter V. Glossary section of this chapter for the proposed definition of key urban facilities and services.
10 Ibid.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
67
environmental, and energy consequences in the design and construction of urban .
de'/elopments. Landscaping shall be utilized to enhance those natural features. This
oolicv does not oreclude increasing: their convevance caoacitv in an environmentallv
resoonsible manner. (Metro Plan, page III-G-2)
The above policy amendment is proposed to make this policy consistent with proposed
stormwater policies in Metro Plan Chapter III-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 Manag:ement Practices (BMPs): Manag:ement oractices or techniaues used to g:uide
desig:n and construction of new imorovements to minimize or orevent adverse
environmental imoacts. Often org:anized as a list from which those oractices most suited
to a soecific site can be chosen to halt or offset anticioated oroblems.
Class F Streams (currentlv Class I Streams in Lane Code}--: "Streams that have fish
use. including: fish use streams that have domestic water use." as defined in OAR 629-
635.
Drinking: water orotection (source water orotection): Imolementing: strateg:ies within a
drinking: water orotection area to minimize the ootential imoact of contaminant sources
on the aualitv of water used as a drinking: water source bv a oublic water system.
.
Extension of urban facilities: eConstruction of the facilities necessarv for future service
oroYISIon.
Floodolain: The area adioining: a river. stream. or watercourse that is subiect to 100-vear
flooding:. A 100-Year flood has a one-oercent chance of occurring: in anyone vear as a
result of oeriods of hig:her-than-normal rainfall or streamflows. hig:h winds. raoid
snowmelt. natural stream blockag:es. tsunamis. or combinations thereof.
Floodway: The normal stream channel and that adioining: area of the floodolain needed
to convey the waters of a 100-vear flood.
Groundwater: Water that occurs beneath the land surface in the zone(s) of saturation.
Imoervious surface: Surfaces that orevent water from soaking: into the g:round. Concrete.
asohalt. and rooftoos are the most common urban imoervious surfaces.
.
68
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
Kev urban facilities and services:
· Minimum level: wWastewater service. stormwater service. solid waste
mana!!ement. water service. fire and emer!!encv medical services. oolice
orotection. citv-wide Darks and recreation oro!!rams. electric service. land use
controls. communication facilities. and oublic schools on a district-wide basis (in
other words. not necessarilv within walkin!! distance of all students served).
· Full ran!!e: tThe minimum level of key urban facilities and services olus urban
oublic transit. natural !!as. street lil!htinl!. libraries. local oarks. local recreation
facilities and services. and health services.
Soecial service district: Anv unit of local l!overnment. other than a citv. county. an
association of local l!overnments oerforminl! land use olanninl! functions under ORS
195.025 authorized and rel!ulated by statute. or metrooolitan service district formed under
ORS Chaoter 268. Soecial service districts include but are not limited to the followinl!:
domestic water district. domestic water associations and water coooeratives: irril!ation
districts: rel!ional air auality control authorities: rural fire orotection districts: school
districts: mass transit districts: sanitary districts: and Dark and recreation districts.
Svstems develooment charl!e (SDC): A reimbursement fee. an imorovement fee or a
combination thereof assessed or collected at the time of increased usal!e of a caoital
imorovement. connection to the caoital imorovement. or issuance of a develooment
oermit or buildinl! oermit.
.
Urban facilities: Facilities connected to. or Dart of. a municioal oublic facility svstem.
Urban growth boundary: A site-specific line, delineated on a map or by written
description, that separates the projected urban service area urban and urbanizable lands
from rural land~. (Refer to graphic on page V 5.)
Urban reserve area: Rural areas located beyond the urban l!rowth boundary not needed to
satisfy urban demands associated with the 20-Year olanninl! oooulation.
Urban service area, current: The actual geographic portion of the metropolitan area
designated as urban land and in '.vhich the minimum level of key urban facilities and
ser.-ices are available or imminent. (Refer to graphic, below)
Urban service area, proiected: The estimated geographic urbanizable area 'Nithin which a
full range of urban services will need to be extended or provided to accommodate urban
development needs by a designated future point in time. It is primarily determined by
population, land use and economic projections. Periodic adjustments to these projections
are necessary to reflect changing conditions and more recent data. (Refer to graphic,
below)
[Delete graphic on page V-5 and references thereto.]
.
Urban water and wastewater service orovision: The ohysical connection to the water or
wastewater system.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
69
.
.
.
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 and 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
growth boundary. II
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 A Metropolitan Urban Reserve Analysis Study
II See Chapter II, recommended Metro Plan Policies 0-25 and 0-26 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 III.
12 Urban Reserve
These rural areas are located 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 urban 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 offuture
planning, urban reserve areas shall be assumed to develop as low density residential at densities used in
preparation of this Plan. Urban level services shall not be extended to urban reserve areas until they are
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
71
is now underway as one of the work tasks in the Eugene-Springfield Metro Plan Periodic Review
Work Program. This study may result in changes to the existing Urban Reserve designations. .
Any such changes may necessitate amendments to this refinement plan and Metro Plan policies
to reflect updated facility service needs and projects.
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( 1)( 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: 1) 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.
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.
included within the urban growth boundary through future amendments or updates. (Metro Plan, page II-E-
14). .
13 An electrical systems conditions assessment is not provided and is not required.
72
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
Eugene""
pringfield
Existing Water Service Areas
ublic facilities and
ervices Plan
This map illustrates all areas within the Eugene-Springfield urban growth boundary (UGB) to which water service is provided or planned,
and areas now served outside the UGB. The eight service areas include the two municipal water providers: Eugene Water & Electric Board
and Springfield Utility Board; the four domestic water districts: Santa Clara, River Road, Glenwood, and Rainbow; and one private water
company, the Willamette Water Company. The Santa Clara, River Road, and Glenwood Water Districts provide service through contracts
with the Eugene Water & Electric Board. The Willamette Water Company purchases water from the Eugene Water & Electric Board. Water
service area obligations outside the UGB include existing water districts, private company and individual services, and service to areas
previously served by water districts now dissolved: Bethel, Oakway, Hillcrest, and College Crest water districts.
Key
.
Water Service Area Obligations
Outside UGB
G'"'...1 Urban Reserve
-
Urban Growth Boundary (UGB)
City Limits
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysis
Periodic Review Study.
~~
~\~
j
~I
;'
~
North
-r
Water Service Proviaers
EWEB - Eugene Water & Eiectric Board
SUB - Springfield Utility Board
RWD - Rainbow Water District
SCWD - Santa Clara Water District
I?l?wn _ t?i\lP... PI""\~....I \A/-:::J-r.DII" ni.-:.+""ir+
July 2000
o
~~
2
:3 milea
.
""
""., '"
Scale
.
.
.
t:.ugene..:springtield Public Facilities and ervices Plan
Existing Wastewater Service Areas
This map illustrates areas to which wastewater service is provided or planned, including the
area now served outside the UGB at the Eugene Airport.
Key
CJ
City Limits
Urban Growth Boundary
-
i7,:.~::::1
,,,,".'-..
Urban Reserve
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysis
Periodic Review Study.
i
".,
'"
I
~
North
--r
Wastewater Service Providers:
City of Eu~ene: west of 1-5 within UGB
July 2000
City of 5prin~field: east of 1-5 within UGB
o
2 :3 miles
.
~e~~op~litan ~aste~~:er Mana~ement Commission:
~~
Scale
Storm water Service Providers:
I
I
I
I
I
,
\
\
\
\
\
Eugene- pringfield ublic Facilities and ervices
Existing Stormwater Service Areas
Ian
.
This map illustrates areas to which stormwater service is provided or planned.
Key
[=:J City Limits
- Urban Growth Boundary
t~>~ Urban Reserve
._,"... ...
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysis
Periodic Review Study.
j
~I
/~
. I ~
J
.
~i ~
::J
j, "
c
'"
I
i '-~i-,^"
.____J.---_.
/
/
//j
~
North
--r-
City of Eugene: west of 1-5 within UGB
July 2000
.
City of Springfield: east of 1-5 within UGB
o
b.......d
1 2 3 miles
- .
Scale
,
.
.
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-west supply 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 been replaced. However, an unacceptable water loss from pipe
leakage remains.
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
79
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 effluent efficiently. Inflow
and infiltration ratios express the amount of stormwater 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 1900 and 1905. The Central Eugene system
contains all of the older pipelines, which may contribute most of the III to the Eugene
collection system. A Sewer System Evaluation Survey, 1978, indicated that about 80
percent of total III was contributed by the Central Eugene system.
The WilIakenzie system area was annexed to the city in 1960 with a majority of the
wastewater system constructed between 1961 and 1964. A large area north of Beltline .
80
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
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 1964.
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 1995, and will be capable of
serving the Downtown Westside 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 1995 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.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
81
Table 10
Springfield Wastewater Collection System General Condition Assessment
.
Basin Conveyance IntlowlInfiltration Ratio*
Capacity
Adequate Not PeaklBase Storm/Base
Adequate Flow (MOD) Flow (MOD)
Main Street X 1.7 2.0
Thurston X 4.6 3.0
North Sprin2field X 5.1 3.6
North Branch X Unknown Unknown
Downtown/South A X 11.2 5.7
JasperIDou2las Gardens X 1.7 2.0
* Base Flow is the normal volume in millions of gallons per day (MOD).
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 storm event.
The ratios shown in these columns are a measure of: 1) pipe condition, 2) crossed
storm and sanitary sewer connections, and 3) future problem areas.
PeaklBase and Storm/Base ratios greater than 5.0 indicate system problems.
.
Stormwater System Condition Assessment
Eugene Stormwater System Condition Assessment
Table 11 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 relatively high
number of segments in this category is also shown in the Amazon Creek Basin and
Laurel Hill Basin.
.
82
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
Basin Name No. of Segments Expected to be Flooded under Existing and Segments Expected to be Flooded under Future
Segments Future Land Use Conditions Land Use Conditions Only
Modeled
No. of Length of flooded segments % of total No. of Length of flooded % of total
flooded number of flooded segments number of
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%
Bethel/Danebo 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 to be to be to be
River Road determined determined determined
Willamette River 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
segments 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
Table 11
Eugene Stormwater System General Condition Assessment
*The flooding problems caused by high water level in the Willamette River are not included in the table.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
83
.
.
.
Springfield Stormwater 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 .. Conveyance Capacity Outfall Outfall Water Quality
(StonnEvents) Capacityl Control 2 .
(Stonn
Events)
Present Buildout Pre- Known
treated Water
(%) Quality
Deficiency3
2-yr lO-yr 2-yr lO-yr 2-yr lO-yr City UG
Event Event Event Event Event Event B
Cedar Creek Y N N N N N N N <10% ./
Weyerhaeuser Y Y Y Y Y Y Y Y <10%
Outfall
West Y Y Y Y Y Y Y Y <10%
Springfield!Q
Street
West Y N N N N N N N 20%
Springfield!
Hayden Bridee
North Y Y Y Y Y Y Y/N4 N 50%
Gateway
Q Street Y N Y N Y Y Y N <10%
Floodway
Mill Race Y Y Y Y Y Y Y Y 20% ./
Jasper Y N N N Y N Y/N4 N 40%
Mountaingate, Y Y N N Y Unk Y/N4 N 0%
Jasper /Natron
West Kelly Y Y Y Y Y Y Y Y <10%
Butte!
Willamette
IOutfall capacity is a measure of the receiving body's ability to absorb and convey runoff.
20utfall 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.
3Does not meet one or more water quality standards as defined in DEQ section 303(d) Water Quality Act.
4Multiple 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.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
85
Table 12 also analyzes the conveyance capacity needed to accommodate two-year and
ten-year events in the future when anticipated buildout of the 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 are 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, stormwater, 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.
.
86
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
Methodology
In November 1998, utility service questionnaires were completed by service providers to
ascertain 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,
stormwater, 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 Technical 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 in conjunction 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
1. 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 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 potential nodes are shown in the
TransPlan map, Nodal Development Areas Proposed for the Eugene-Springfield Metro Area, contained in the
appendix of the Public Facilities and Services Plan Technical Background Report.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
87
I
I
I
I
I
.
'!/ ~
, ~.., I
· -f '\1
/ ,
/ . ~,
l______/
"
.."'..
~.,. .....Reeel"\le
... ..~.,~
..~
t
,
.. .. "
..
....
\. .".....'
.....
Eugene- pringfield ublic Facilities and ervices Plan
Public Service Availability in the Eugene-Springfield Metropolitan Area
.
l AI ortRd.
--
City Limits
Urban Growth Boundary
Urban Reserve
Key
~~
00
\5''''
~
tJ,. 4!C
~~
~~
'&~
, -:)
~9~
tJ,.~
~~
'"
~
Key
c:J
Note: Urban Reserves are now being studied as
part of the Metropolitan Urban Reserve Analysis
Periodic Review Study.
Water ~ ~
Wa5tewater . ~
Stormwater - \v
Electric 1 p
~
~'" //
~----~/
Short-Term (0-5 year5):
Short-term areas are development-
ready sites as well as areas that will or
can be provided with service within the
next five years, (Le., projects listed in
capital improvement plans or areas
where service can be extended upon
development).
.
Long-Term (6-20 year5):
Long-term areas are affected by service
constraints and cannot be served in
the short term.
,
~
North
--r-
.
July 2000
o
2
:3 miles
,
~-
Scale
..
.
2. 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.
3. 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 with gravity wastewater service.
4. Since the 1980s, the cities of Eugene and Springfield have recognized that open
drainage systems can reduce overall infrastructure costs, conserve natural resources,
and provide stormwater treatment and conveyance. Through adoption and
implementation of the Eugene Comprehensive Stonnwater 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 stormwater planning effort.
.
5. 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 and SUB five-year capital
plans provide for these new facilities.
Short- Term Service Availability to 10011, Redevelopment, and Nodal
Development Areas
1. 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.
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
91
.
.
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 services 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 intergovernmental 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.
.
92
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
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 infrastructure 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 for the
area to develop at buildout.
3. In the Laurel Hill area of Eugene, the Fairmount reservoir 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
1. 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
1. 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 stormwater system
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
93
.
.
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. 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.
Water
1. 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 Willamette 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 level water service in the Willamette 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.
.
94
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
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 Willamette 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 SpringfieldJHayden
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
95
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
1. 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 tr~atment 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.
.
96
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
.
.
Estimated 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 1: Planned Water Facilities.
Table 13
EWEB Water System Improvements, Estimated Costs, and Timing
Project Project Name!Description Cost Estimated
Number ($000) Completion
.. Year
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 IOmg Reservoir and 21,100 2003
pump gallery
Lon!!- Term
218 Back-up well field development area 10,100 2007
219 Hayden Bridge-former fish hatchery intake 1,000 2010+
modi fications
220 Laurel Hill reservoir (850) 830 2005
221 Laurel Hill reservoir and pump station (975) 1,000 2007
222 Laurel Hill pump station (1150) 150 2007
223 Shasta reservoir (1150) 500 2006
224 Dillard reservoir (975) and pump station (1150) 750 2010+
225 Dillard reservoir (1150) 500 2010+
226 Elliot reservoir (607) 5,000 2010+
227 Willamette reservoir (1325) 500 2010+
228 Willamette pump station (1500) 150 2005-08
229 Timberline reservoir ( 1100) 500 2008
230 Timberline pump station (1325) 150 2008
231 Gimple Hill reservoir (975) and pump station 750 2010+
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
97
].
.
Table 13
EWEB Water System Improvements, Estimated Costs, and Timing (continued) .
Project Project NameIDescription Cost Estimated
Number ... ($000) .. Completion ..
Year
232 Green Hill reservoir (800) 500 2010+
233 Green Hill reservoir (975) 500 2010+
234 Green Hill pump station (975) 250 2010+
235 Wests ide/Cantrell Hill reservoir (607) 10,000 2010+
236 Westside Transmission Main 1,000 2010+
237 Glenwood/LCC Basin intertie 500 2010
Table 14
SUB Water System Improvements, Estimated Costs, and Timing
Project Project NameIDescription Cost Estimated
Number ($000) Completion
. Year
Short-Term
101 Install 24-inch line alon,g 1-105 700 2002-2017
102 Install 16-inch line to Glenwood 500 2000-2017
103 Install 16-inch line alon,g 32nd Street 400 2000-2010
104 Add well(s) in existin,g Thurston well field 350 1999-2004
105 Add well at 16th and Q Street 250 2004
106 Install new treatment at Thurston 300 2004
107 Add well(s) near Thurston Wellfield 400 2002
108 Install transmission lines along Booth Kelly Road 2,500 2001
into the Natron Area
109 Install new source, Willamette Wellfield 2,000 2001
Lon!:- Term
202 Install 16- to lO-inch line in SP railroad right-of- 500 2005-2017
way
203 Install 12- and 16-inch line along Thurston Road, 500 2000-2010
Main Street, and in South Hills, to supply new
development
204 Pump station(s) to serve upper levels 375 2005-2017
205 Install 16-inch line on SP railroad right-of-way 175 2005-2017
south to Hayden Bridge Way (RWD)
209 Add upper level reservoir(s): (3rd, 4th, 5th level) 2,500 2005-2017
211 Install 16-inch line alon,g Main Street 400 2011-2017
212 Add well(s) near 31st and Marcola Road 250 2005
214 Add wells near Interstate-5 and Game Farm Road 500 2005-2017
North.
215 Add wells in Natron area 1,000 2005-2017
216 Install 12-inch line, Thurston to Main Street 1,000 2005-2017
98 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
..
.
.
.
.
.
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 Improvements, Estimated Costs, and Timing
Project Project NamelDescription ..Cost Estimated
Number ($000) . Completion Year
Short-Term
100 West Eugene Bypass (48-inch) 3,350 2002
101 North River Road pump station 315 2002
102 North Willakenzie gravity sewers 666 2004
103 North Enid pump station 774 2005
Lonl!-Term
200 North Willakenzie pump station 645 2008
201 A wbrey Lane pump station 300 2008
Table 16
City of Springfield
Wastewater System Improvements, Estimated Costs, and Timing
Project Project NameIDescription Cost Estimated ..
.. Completion Year
Number ... ($000)
Short-Term
104 Jasper Road sewer extension 3,500 1999-2004
105 Game Farm Road trunk sewer 1,500 1999-2004
106 GatewavIHarlow Road pump station upgrade 1,500 1999-2004
LonJ!-Term
202 East Glenwood gravity sewer 1,100 2005-2006
203 19th Street pump station 500 2005-2006
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
99
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
Project Project Name/Description Cost Estimated
Number ($000) Comuletion Year
Willakenzie Basin Short-Term
1 River Point Pond Outlet Channel 1,636 2000-2006
2 Federal Priority Project- Delta Ponds 2,800 2000-2006
Enhancement
Willakenzie Basin Long-Term
3 Gilham Road System Water Quality Facility 654 2007-2011
4 Gilham Road System Culvert Replacement 32 2007-2011
5 Ayers Pond Outfall Retrofit 774 2007 -2011
6 Wetland Adiacent Coburg & County Farm Roads 1,152 2012-2035
7 Modify Ascot Park Open Waterway 662 2012-2035
Laurel Hill Basin Short- Term
8 Riverview/Augusta Bypass and System 650 2000-2006
Improvements
9 Minor System Between Riverview and Augusta 59* 2000-2006
10 1-5 and Augusta Water Quality Facility 1,246* 2000-2006
11 Riverviewl Augusta Minor Storm Drainage 48 2000-2006
System Plan
Bethel Danebo Basin Short-Term
12 Green Hill Tributary Stream Enhancements 800 2000-2006
13 Culvert Replacement in Roosevelt Channel 192 2000- 2006
23 West Irwin Storm 295 2001
Bethel Danebo Basin Long-Term
14 Royal Node Infrastructure 1,859 2007 -2011
15 Retrofit Empire Park Pond 571 2007 -2011
16 Increase Pipe Sizes Along Bell A venue 795 2012-2035
17 Green Hill Tributary Water Quality Facility 749 2012-2035
18 Wallis Street Culvert (Bertelsen Slough) 660 2012-2035
19 Increase Pipe Sizes Along Garfield Street 1,620 2012-2035
Amazon Creek Basin Short-Term
20 Kinney Park Neighborhood Facility 665 2000-2006
21 Federal Priority Project- Upper Amazon Creek 3,300 2000-2006
Restoration
22 Martin Drive Pipe Improvements 92 2000-2006
24 Hilyard Street Pipe Improvements 290 2000-2006
*Total project costs do not include acquisition costs.
100 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
'.
.
.
.
'"
.
.
.
Table 17
City of Eugene
Stormwater System Improvements, Estimated Costs, and Timing (continued)
Project Project Name/Description Cost Estimated
Number ($000) CompletiQn Year
Amazon Creek Basin Long-Term
25 Federal Priority Project - Central Amazon Creek 3,500 2007-2011
Restoration
26 Jackson Street Pipe Improvements 77 2007 -2011
27 North Laurelwood Water Quality Facility 446 2007-2011
28 South Laurelwood Water Quality Facility 371 2007-2011
29 Pine View Neighborhood Facility 309 2007-2011
30 43fO A venue Pipe Improvements 2,156 2012-2035
31 Morse Ranch Park Pipe Imorovements 1,004 2012-2035
32 Option B - Laurelwood Flood Control Facilities 2,008 2012-2035
and Pipe Improvements
33 Option B - Mt. Cavalry Pipe Improvements 944 2012-2035
34 Mt. Cavalry Water Quality Facility 470 2012-2035
35 Option A - Cleveland Street Flow Diversion 422 2012-2035
36 Option B - Brittany Street Pipe Improvements 308 2012-2035
37 Option B - Windsor Circle Pipe Improvements 968 2012-2035
38 Water Quality Facility West of Hawkins Lane 625 2012-2035
39 Water Quality Facility at Sam R. Street 487 2012-2035
40 Water Quality Facility at Interior Street 328 2012-2035
Willow Creek Basin Short- Term
41 Willow Creek - West Branch Culvert/Channel 36 2000-2006
Retrofits
Willow Creek Basin Long- Term
42 Realign/Restore Main Stem Willow Creek 2,689 2012-2035
43 Willow Creek - East Branch Culvert/Channel 980 2012-2035
Retrofits
Willamette River Short-Term
44 Federal Priority Project - Willamette River Bank 1,000 2000-2006
Restoration
45 Polk Street Water Quality Facilities 357 2000-2006
Willamette River Long-Term
46 Federal Priority Project - Eugene Millrace 2,500 2007 - 2011
Enhancements
City-wide Projects Short-Term (not mapTJed)
Channel Easement Acquisition 950 2000-2006
Stormwater Rehabilitation , 4,579 2000- 2006
City-wide Projects Long-Term (not maTJTJed)
Channel Easement Acquisition 1,500 2007-2035
Stormwater Rehabilitation 7,500 2007-2035
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
101
Table 18
City of Springfield
Stormwater System Improvements, Estimated Costs, and Timing
Project Project NameIDescription Cost Estimated
Number ($000) Completion Year
Short-Term
100 Sports Way Detention Pond 400 1999-2004
101 Maple Island Slough Outfall 1,500 1999-2004
102 Deadman Ferry Outfall 150 1999-2004
103 Aster Street System 500 1999-2004
104 Jasper Slough Outfall 150 1999-2004
105 20th Street Outfall 250 1999-2004
106 T Street Detention Pond 150 1999-2004
107 Pierce Industrial Park Drainage 300 1999-2004
108 Mill Race Enhancements, including new intake 1,000 1999-2004
109 Jasper/Natron Outfalls and associated pipe 1,500 1999-2004
systems
110 Hwy 126/1-105 Drainage Improvements 450 1999-2004
l11-A Cedar Creek: 69th Street Channel improvements 500 1999-2004
I11-B Cedar Creek: 72nd Street Channel Improvements 250 1999-2004
Long- Term
200-A Cedar Creek: Outfall/Detention at Lively 250 2005-2010
Park/McKenzie River
200-B Cedar Creek: Thurston Middle School Channel 100 2005-2010
Improvements
200-C Cedar Creek: 66th Street Outfall 450 2005-2010
200-D Cedar Creek: 75th Street Outfall 250 2005-2010
200-E Cedar Creek: Gossler Bank control project 1,500 2005-2010
200-F Cedar Creek: Diversion System 1,500 2010+
200-G Cedar Creek: East Thurston Road/Hwy 126 250 2010+
Outfall and Associated Piping
201 Thurston Road Interceptor 400 2005-2010
202 Hwy 126 and 87th Interceptor and Outfall 400 2010+
203 South 79th 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 16th Street Outfall 250 2005-2010
210 Jasper Slough Improvements 500 2005-2010
211 Hayden Bridge Road Interceptor 500 2005-2010
102 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
..
.
.
.
,
..
.
.
.
.
.
V. Financing Methods and Alternatives
This chapter describes financing strategies now used by the metropolitan jurisdictions and
financing issues and challenges, and presents some alternative financing strategies for water,
wastewater, and stormwater infrastructure systems.
Financing Methods
There are eight basic sources of financing that jurisdictions in the metropolitan area have
available to fund system operations and maintenance and/or capital projects:
1. 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 19).
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's Wetland Mitigation Bank Fund, and the
Stormwater 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 financed by a transfer from the General Fund, which is funded by property taxes
and other general revenue sources. The City may receive direct funding for projects from
other jurisdictions or through grants and donations.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
103
,
..
. 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 of EWEB'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 forthe 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 Development/Redevelopment 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- iurisdictional 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.
. Stonnwater: 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.
.
104 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
,
.
.'
.
Table 19
Existing Financing Sources
User
fees
Assess- Develop- Property
ments ment tax
fees
Grants!
loans
Bonds
Short-
term
debt
Private
finance
Water
EWEB
O&M X
Rehabilitation X X X X
Expansion X X X X X
SUB
O&M X
Rehabilitation X X
Expansion X X X
Rainbow
O&M X
Rehabilitation X
Expansion X X
Wastewater
.
City of EU2ene
O&M X
Rehabilitation X X X X
Expansion X X X X X X X X
City of Sprin2field I
O&M X
Rehabilitation X X
Expansion X X X X X X
MWMC
O&M X
Rehabilitation X X I
Expansion X X X
Stormwater
City of EU2ene
O&M X
Rehabilitation X X X
Expansion X X X
City of Sprin2field
O&M X
Rehabilitation X X
Expansion X X X
Lane County
O&M
Rehabilitation X
Expansion X
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
105
.
.
· 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.
A2in2 Systems
The cost implications of an aging wastewater infrastructure 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 of the community. There could be significant cost implications
to rehabilitating the collection system, including the private costs of system-wide repair of the
piping on individual lots.
Endan2ered Species
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 Initiatives
The current climate of citizen resistance to tax and 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 Dischan~e Elimination System: Sprin2field and Lane County
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.
Shiftin2 Responsibilitv of Development Costs
Jurisdictions are increasingly shifting the cost of development to those that directly benefit from
the new infrastructure.
Alternative Financing Strategies
Service providers are considering alternative ways of financing infrastructure. The following
summarizes possible alternative financing strategies:
.
106 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
· 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.
· 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).
· 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 stormwater system. Eugene is also in the
process of reviewing all SDCs to determine whether full cost recovery goals are being met.
· 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 stormwater
improvements.
· 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.
· 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.
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
107
.
.
.
. .
Appendix A
1987 Metro Plan Chapter III-G. Public Utilities,
Services, and Facilities Element
.
.
.
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 of these public facilities and programs should be
viewed as one of the 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 proper 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 planning for provision of key urban services, it is useful to keep in mind the distinction
between the "current urban service area," where a minimum level of urban services is
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
111
.
.
available or will be within the near future, and the "projected urban service area," which is
the estimated area within which services will be needed to provide for development needs
over the long term. It is necessary to provide key urban services in a sequential manner
that recognizes the difference between the current and projected urban service 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
actual 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 to 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.
.
Findin2S
1. 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 development 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
cooperati ve 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 of the urban area lack certain key urban services.
5. The cost of providing even basic key services, utilities, and facilities to existing and
future development in the metropolitan area is significant.
.
112 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
"
.
.
.
.
.
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 of fertility 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.
11. Growth patterns do not always respect school district boundaries. For example,
natural cycles of growth and neighborhood maturation result in uneven geographic
growth patterns in the metropolitan area, which cause a 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
neighborhoods, 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.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
113
'.
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.
Objectives
1. Furnish guidelines for public facility programming and decision making that will
result in lower public and private expenditures.
2. Provide public utilities, services, and facilities to serve existing development and
closely coordinate them with the land use elements of the General Plan as a means of
encouraging orderly and sequential growth.
3. Reduce and, if possible, eliminate the problems created by 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.
114 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
.
.
.
.
.
.
Policies
1. In 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 of the
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 maintained. 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
current or 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.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
115
, .
.
.
8. Efforts shall be made to mitigate the impact of residential 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 possibly 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 shall address the possibility of adjusting boundaries where they
do not reflect the boundary between Eugene and Springfield or where a single,
otherwise internally cohesive, area is divided into more than one school district.
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 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.
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.
116
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
,
.
.
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 affected jurisdiction(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.
.
.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
117
.
.
.
.'
Appendix B
Existing Federal, State, and Local Policy Framework
.
.
.
"
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
state laws, administrative rules, and local policies and intergovernmental agreements. This
Chapter presents existing policy and does not reflect the 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 efficient 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. These policies are implemented through city codes, procedures and capital improvement
programming.
In addition to existing local policies, policies proposed in studies and plans now underway or
recently adopted may have impacts 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 Work Program.
In Eugene-Springfield, this policy context is reflected in Metro Plan policies guiding the
following activities.
· Planning and Coordination
· Services to Development Within the UGB
· Services to Areas Outside the UGB
· Locating and Managing Public Facilities Outside the UGB
. Financing
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
121
"
.
Planning and Coordination
State 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 of urban services, ownership of facilities, annexation of service territory,
transfer of moneys or certain project responsibilities, and merger of service providers.
State law also requires coordination 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 delegated responsibility as the coordinating body in Lane County.
Lane County Local Government Boundarv Commission
Boundary changes to special service 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 A2reements
Public service providers can enter into intergovernmental agreements to address interim service
provision to territory within the urban growth boundary; and some agreements, above, are
required by state law. As part of 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.
.
122 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
.'
State law and local policies encourage the efficient delivery of public services and facilities and
economies of scale through the establishment 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 transition 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 II-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 II-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 III-G-6).
Services to Development Within the UGB
Statewide Plannin2 Goal 14
Oregon's statewide planning law 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 circumstances 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
requires all cities to estimate future growth and needs for land and to plan and zone enough land
to meet those needs. It calls for each city to establish an "urban growth boundary" to "identify
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
123
'.
and separate urbanizable land from rural land." It lists four criteria to be applied when
undeveloped land within a UGB is to be converted to urban uses, one of which is consideration
of "orderly, economic provision 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 on which 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 outlined in the Metro Plan.
Statewide Plannin2 Goal 11
The draft Eugene-Springfield Metropolitan Area Public Facilities and Services Plan is proposed
for compliance with Statewide Planning Goal 11, "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 11 and Oregon 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, storm water, and transportation facilities that are to support the land uses designated
in the comprehensive 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 outfall locations; and,
.
124 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
"
4. Transportation: Statewide Planning Goal 12, Transportation Planning, and associated
OAR provide that Transportation System Plans adopted pursuant to Goal 12 requirements
fulfill the requirements for public facilities planning under Goal 11 (OAR 66-12-000).
OAR 660-11-010 directs that public facilities plans contain inventories, projects, and policies, as
described below.
1. Inventory
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 (e.g., very good, good, fair, poor, very poor).
2. Projects
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 of the 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 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 are 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.
OAR 660-11-005 states that "project timing and financing provisions of public facility plans
shall not be considered land use decisions as specified under ORS 197.015(10)." Project timing
and financing provisions in the public facilities plan are not adopted as part of comprehensive
plans.
OAR 660-11-045(2) anticipates that circumstances may change over time that may alter the
project descriptions or location and, therefore, the public facilities plan does not: prohibit
projects not included for which unanticipated funding has been obtained; preclude project
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
125
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. 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 governed by the provisions of ORS 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 II-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 II-D-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 II-B-7 and #26, page
II-B-8). The county UF-1O 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
.
126 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
,
.
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 rural 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 II-B-4). Only when the minimum level of
services cannot be provided by the 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 II-B-6; and policy #20 and #21, page II-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 II-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 II-B-5):
1. The area to be annexed will be provided an urban service(s) which is (are) desired
immediately by residents/property owners.
. IS Oregon law was amended in 1989 to allow concurrent annexation to the park district.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
127
..
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 Redevelopment Policies
The Metro Plan contains policy direction throughout to encourage higher residential densities
and to use existing vacant land and 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 extending 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-fill, mixed use, and
redevelopment. (Policy #14).
Target publicly-financed infrastructure extensions to support development for higher
densities, in-fill, 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 stormwater 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: 1) reduce nonpoint source
pollution; 2) prevent illicit discharges into stormwater systems; 3) implement water quality
improvements through use of best 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.
.
128 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
.
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 IV 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: 1) 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 NEPA, 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.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
129
State Law Affectin2 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 identify 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: Willamette River Greenway: To protect, conserve, enhance, and maintain the
natural, scenic, historical, agricultural, economic, and recreational qualities of lands along
the Willamette River as the Willamette River Greenway.
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 Willamette 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 Policies
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 runoff and facilities management.
The Metro Plan Environmental Resources Element contains policies pertaining to floodway
regulations and development considerations on downstream impacts (Metro Plan, policies #1-3,
.
130 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
.
.
page III-C-7), and provides direction for wetlands protection, and water quality and quantity
programs, (Metro Plan policies #18-20,22, page III-C-I0). 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 III-D-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 planning for new construction, public education, use of natural
systems, preservation of natural drainageways, and reduction of street-related 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 stormwater
storage and conveyance;
· Use constructed wetlands, wetland enhancement, and waterways for stormwater
treatment, storage, and conveyance;
· Create and protect a connected natural stormwater system;
· Use a comprehensive wetlands mitigation program to guide planning future stormwater
systems;
· Create a comprehensive stormwater monitoring and maintenance program to serve
multiple storm water management objectives; and,
· Develop a plan for financing the stormwater management program.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
131
Services to Areas Outside the UGB
.
Urban Reserves
There are three areas designated Urban Reserve in the Metro Plan diagram. Located outside the
UGB in East Thurston, Willow Creek, and north of Irvington Drive in north Eugene, all three of
these areas are located within the 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 urban 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 Plan 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 values until they were to be added to the UGB. (See Metro
Plan, page II-E-14).
In 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 reserves 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 stormwater facilities on farm
land. The relevant ORS and OAR sections follow this analysis.
Farm land: Needed utility facilities are allowed, including natural and constructed water
and stormwater conveyance, storage and treatment facilities (including stormwater
detention ponds); and electric transmission and distribution lines (although commercial
.
132 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
.
,
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 772.210, 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 located 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 215.296:
(g) Commercial utility facilities for the purpose of generating power for
public use by sale.
(1) 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. (1) 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 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"[(OAR 660-011-060 (1)(0).
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
133
(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;
(1) reservoirs and 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;
134 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.'
.
.
.
u
,
.
.
(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), (1) (r), (s) and (v) of this rule.
Statewide Plannin2 Goal 11
Goal 11 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: 1) 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 do one or more of the following:
1. 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 no practical alternati ve to
a wastewater system to abate the health hazard [OAR 660-011-0060(4)].
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
135
v
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 UGB to Serve the Urban Area
Statewide Plannin2 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: 1) 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:
1. 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 Plannin2 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 Goal 4 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) commission rule that will not have significant adverse effects on accepted
farm or forest practices.
Locating 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 stormwater 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 over 200 feet .
in height must meet the standards in ORS 215.296).
136 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
.
.
"
· 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 100 feet (as specified in ORS 772.210), transmission towers, and utility
facilities under ten acres for the purpose of generating power. Stormwater facilities on forest
land do require a goal exception.
Locating 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 facilities 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 district, 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 III-G-5).
Financing
The Capital Improvement Programs (CIPs) 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 alternative funding, refer to the draft
Existing Conditions and Alternatives Report.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
137
to
.
.
.
>>
.
Appendix C
Statewide Planning Goal 11
OAR Chapter 660 Division 11
,
.
.
.
.
:
The Oregon Administrative Rules contain OARs filed through July 15, 2000
LAND CONSERV A TION 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 11, Public Facilities
and Services, OAR 660-015-0000(11), interpret Goal 11 requirements regarding public facilities
and services on rural lands, and implement ORS 197.712(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.
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
141
(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 197.712(2)(e), project timing and financing
provisions of public facility plans shall not be considered land use decisions as specified under
ORS 197.015(10).
(9) "Urban Growth Management Agreement": In accordance with OAR 660-003-0010(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).
(10) 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 4-1984, f. & ef. 10-18-84
660-011-0010
The Public Facility Plan
(1) 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;
142 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
\
..
.
.
.
..
.
.
.
t.
(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. If there 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;
(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
possible new mechanisms to fund 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 660-011-0005(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. Where 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 plan, 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 considered 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. Implemented: ORS 197.712
Hist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0015
Responsibility for Public Facility Plan Preparation
(1) 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 the 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 responsible 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 port 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 if they
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
143
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 197.712
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 of facility,
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 183 & ORS 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 exceeded, 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 nor 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 of long-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 occurring 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 facility plan shall
144 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
,
..
.
.
.
..
.
.
.
.
.
provide a general estimate as to when the need for project development would exist, e.g.,
population level, service level standards, etc. Timing provisions for public facility projects shall
be consistent with the acknowledged comprehensive plan's projected growth estimates. The
public facility plan shall consider 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 197.712(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
(1) 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
specified in OAR 660-011-0045.
Stat. Auth.: ORS 183 & ORS 197
Stats. Implemented: 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
(1) 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 guidelines or local policies.
(2) Anticipated financing provisions are not considered land use decisions as specified in ORS
197.712(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
660-011-0040
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
145
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 periodic 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. Implemented: ORS 197.712
Rist.: LCDC 4-1984, f. & ef. 10-18-84
660-011-0045
Adoption and Amendment Procedures for Public Facility Plans
(1) 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) of this rule; and
(c) The policy(ies) or urban growth management agreement designating the provider of each
public facility system. If there 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 potential sources of funding. 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) of this rule are subject to
the administrative procedures and review and appeal provisions of the regulations controlling the
146 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
,
.
.
..
.
.
.
..
.
.
.
.
.
study (40 CFR Parts 1500-1508 or similar regulations) and are not subject to the administrative
procedures or review 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:
(1) 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. Implemented: 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 of a sewer system" means the creation of a 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;
(f) "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;
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
147
(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 urban 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;
(B) 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 regulations 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 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.
(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 of the 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~
148 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
.
,
j
.
.
.
.
"
.
.
.
.
.
(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-
0018, 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 alternative 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) of this
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 inc9rporated 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
Eugene-Springfield Metropolitan Area Public Facilities and Services Plan
149
. .
. ..
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 of the public or private serv~ce 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 11, 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.: LCDD 4-1998, f. & cert. ef. 7-28-98
.
150 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan