HomeMy WebLinkAbout2019-06-25 Planning PACKET
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ASHLAND PLANNING COMMISSION
SPECIAL MEETING
June 25, 2019
AGENDA
I. CALL TO ORDER:
7:00 PM, Civic Center Council Chambers, 1175 E. Main Street
II. ANNOUNCEMENTS
III. PUBLIC FORUM
IV.PUBLIC HEARINGS
A. PLANNING ACTION: PA-L-2019-0005
OWNER/APPLICANT: City of Ashland
REQUEST:The adoption of the proposed Trails Master Plan as a supporting document to the
Ashland Comprehensive Plan, Chapter VIII, Parks, Open Space, and Aesthetics.
V. ADJOURNMENT
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ASHLAND PLANNING DIVISION
STAFF REPORT
June 25, 2019
PLANNING ACTION:
PA-L-2019-0005
APPLICANT:
City of Ashland
ORDINANCE REFERENCES:
AMC 18.5.9
Comprehensive Plan, Zoning, and Land Use
Ordinance Amendments
REQUEST:
The proposal includes the adoption of the 2018 Trails Master Plan (TMP) as a
supporting document to Chapter VIII Parks, Open Space, and Aesthetics of the City of Ashland
Comprehensive Plan. The plan addresses trail connections to existing systems such as the Bear
Creek Greenway and Central Ashland Bike Path, trails in creek corridors such as Wrights Creek
and Hamilton Creek, and connections to trails in Forest Service lands and to Forest Service Road
2060. In addition, the plan includes chapters on trail standards, safety and protocols, indigenous
peoples, geology, and flora and fauna.
I. Relevant Facts
A. Background
The Ashland Parks and Recreation Commission adopted the following goal in 2015 and
2017: Update Trails and Open Space Comp Plans and continue to purchase land according to
the plans. The Transportation Commission reviewed the draft plan at the January 2019
meeting and recommended approval. The Ashland Parks and Recreation Commission is
scheduled to review the TMP after the Planning Commission public hearing.
The original Comprehensive Plan was adopted by the City Council in November 1982 and
included Chapter VIII Parks, Open Space, and Aesthetics. The same chapter was amended
and replaced in 1991 (Ordinance 2652). The existing Parks, Open Space and Trails Program
map was approved by the Parks and Recreation Commission and City Council in July 2002.
Subsequently, the same map was updated in April 2005. Most recently, the Ashland Parks
and Recreation Commission worked with the Ashland Woodlands and Trails Association
(AWTA) to develop the 2006 Trails Master Plan.
B. Proposed Amendment
The item before the Planning Commission is to hold a public hearing and make a
recommendation to the City Council on the adoption of the 2018 Trails Master Plan as a
supporting document to Chapter VIII Parks, Open Space, and Aesthetics of the City of
Ashland Comprehensive Plan.
Planning Action PA-L-2019-0005 Ashland Planning Division Staff Report
Applicant: City of Ashland Page 1 of 5
Plan Overview
Chapter 1 of the TMP includes a vision, mission and a description of the plan development
and public process. Chapters 2-6 cover material that applies to all of the trails including
standards, safety and protocols, indigenous peoples, geology and flora and fauna.
Chapters 7 and 8 cover two facilities that are paved and are also considered part of the
transportation system in the Transportation System Plan the Bear Creek Greenway and
Central Ashland Bike Path. Chapter 9 covers the Ashland Canal. Chapters 10-14 cover
creek corridors including Wrights, Ashland, Roca/Paradise, Cemetery/Clay/Hamilton and
Tolman. Chapters 15 and 16 cover the Westside and Eastside Forestland trails located in
areas above Ashland that transition to the Forest Service Lands and trails accessed by Forest
Service Road 2060. Finally, Chapter 17 covers regional trail connections such as the Creek to
Crest Trail and Emigrant Lake.
Each chapter that addresses a specific path or corridor (Chapters 7 16) includes a map
which identifies existing and proposed trails. In addition, the written material includes a route
description, discussion of important connections or linkages, the trail character, expected
users, typical section and natural and cultural resources.
Change in Circumstances or Conditions
AMC 18.5.9.020.B permits amendments to the Comprehensive Plan to meet changes in
circumstances and conditions. The Planning Commission makes a recommendation to the
City Council and the City Council makes the final decision.
The existing TMP was developed in 2006 with a goal of creating a grid of trails that unified
the urban area and reached outward to the greater regional open spaces. After ten years of
implementation, the Ashland Parks and Recreation Commission recognized the need for a
ten-year update.
Examples of documents that are adopted as supporting documents to the Comprehensive Plan
include the Housing Needs Analysis (2012), Local Wetlands Inventory (2005/2007) and the
Normal Neighborhood Plan Framework (2015). The documents are identified as a supporting
document to a specific Comprehensive Plan chapter. In turn, the Comprehensive Plan
chapters address the Statewide Planning Goals. For example, the Local Wetlands Inventory
(2005/2007) was adopted as a supporting document to Chapter IV Environmental Resources
of the Comprehensive Plan, and Chapter IV Environmental Resources addresses Statewide
Planning Goal 5: Natural Resources, Scenic and Historic Areas, and Open Spaces.
Technical studies that are required by state law (e.g., local wetlands inventory) are adopted as
supporting documents. Supporting documents often involve data collection and analysis
which is updated more frequently than the Comprehensive Plan policies.
The supporting documents do not create policy but rather the information, data and findings
contained with the documents may be the basis for new policies or amending policies (see
Planning Action PA-L-2019-0005 Ashland Planning Division Staff Report
Applicant: City of Ashland Page 2 of 5
Appendix A: Technical Reports and Supporting Documents).
Applicable Goals and Policies
The project addresses a variety of State goals and City policies.
Statewide Planning Goal 8: Recreational Needs recommends that local jurisdictions
inventory recreation needs and opportunities, and develop long range plans and action
programs to meet the recreational needs. Cities and counties are allowed but not required to
prepare master plans for recreation facilities and amend acknowledged comprehensive plans
to include the master plans.
The statewide guidelines for Goal 8 recommend giving priority to the following types of
recreation facilities:
meeting recreational needs of high density population centers,
meeting recreation needs of persons with limited mobility and finances,
meeting recreation needs providing the maximum conservation in the transportation
of persons to the facility and in the recreation use itself,
minimum environmental deterioration,
are available to the public a nominal cost, and
meet the needs of visitors of the state.
Chapter VIII Parks, Open Space, and Aesthetics of the Ashland Comprehensive Plan
To provide the people of Ashland with a variety, quantity and quality of
parks, park facilities, open spaces, trails, and visual resources sufficient for their
needs
. In addition, the following policies specifically address planning for trails.
Policy 6:
The City shall adopt an official map that will identify the planned areas for
parks, new natural areas, conservation areas and trails
!
Policy 7:
Develop the system of corridors, linear park routs and trails outlined in the
Park and Open Space map. Encourage interconnections between parks, open spaces,
bicycle paths, easements, irrigation ditches, scenic roadway routes, railroad right-of-
way, etc
!
Policy 8:
Establish, where possible, trails along non-urbanized sections of stream
corridors, ensuring the stream ecology and any residences are protected
!
Chapter X Transportation of the Ashland Comprehensive Plan includes a goal (10.15.01)
To raise the priority of convenient, safe, accessible, and attractive walking and
bicycling networks
. In addition, the following policy specifically addresses pedestrian and
bicycle connections to recreation areas.
Policy 10.15.02.5:
Target walkway and bikeway improvements that link
neighborhoods, schools, retail and service areas, employment centers and recreation
areas.
!
!
The TMP also relates to policies included in the City of Ashland Climate and Energy Action
Plan (CEAP). Specifically, the CEAP includes a strategy to implement bicycle and pedestrian
friendly actions including expanding urban trails.
Planning Action PA-L-2019-0005 Ashland Planning Division Staff Report
Applicant: City of Ashland Page 3 of 5
Suggested Amendments
Commissioner Pearce suggested adding the following language to the Overview Section of
Chapter 2 to address the geographic areas in the TMP
jurisdiction. Examples of where the TMP shows trails in Jackson County that are outside the
city limits and City of Ashland Urban Growth Boundary (UGB) are sections of the Bear
Creek Greenway, Ashland Canal, Roca and Paradise Creek corridors,
Cemetery/Clay/Hamilton Creek corridors, Westside Forestland and Eastside Forestland.
c
Growth Boundary and th A number of
trail sections are within Jackson County, whose comprehensive plan strongly supports
cooperation with cities and encourages the development of recreational facilities and
opportunities to meet the need of urban population centers. The City will work with the
County on whatever planning requirements deemed necessary by the County to make the
Master Plan trails and trail connections a reality.
Staff recommends a few minor corrections to the plan as outlined below. Recommended
boldlined throughbold underline
deletions are and additions are in .
In addition, the 2018 TMP will provide a
Page 4, second column, last paragraph
source of information that may be used to assist the community in the evaluation
of local land use decisions.
A discussed earlier in this report, the supporting documents to the Comprehensive
Plan do not create policy as indicated in Appendix A: Technical Reports and
Supporting Documents of the Comprehensive Plan. However, the information, data
and findings contained with the documents may be the basis for new policies or
amending policies.
The Comprehensive Plan is a local government
Comprehensive Plans establish the policy framework for the local land use
program. Comprehensive Plan policies are typically not directly applicable to
individual applications, but this can vary from jurisdiction to jurisdiction. LUBA
has held, however, that a local government may only apply its Comprehensive
Plan as a regulatory document if such intent is clearly expressed by the language
of the Plan.
Page 12, first column, last paragraph City
floodplain, and hillside
riparian ordinances and regulations such as erosion control
and setbacks. When appropriate, a geologist or geotechnical engineer will be
consulate in areas of steep terrain, unstable soil conditions or severe erosion areas.
II. Procedural
18.5.9.020 Applicability and Review Procedure
Planning Action PA-L-2019-0005 Ashland Planning Division Staff Report
Applicant: City of Ashland Page 4 of 5
Applications for Plan Amendments and Zone Changes are as follows:
B. Type III.
It may be necessary from time to time to make legislative amendments in order to
conform with the Comprehensive Plan or to meet other changes in circumstances or
conditions. The Type III procedure applies to the creation, revision, or large-scale
implementation of public policy requiring City Council approval and enactment of an
ordinance; this includes adoption of regulations, zone changes for large areas, zone
changes requiring comprehensive plan amendment, comprehensive plan map or text
amendment, annexations (see chapter 18.5.8 for annexation information), and urban growth
boundary amendments. The following planning actions shall be subject to the Type III
procedure.
1. Zone changes or amendments to the Zoning Map or other official maps, except where
minor amendments or corrections may be processed through the Type II procedure
pursuant to subsection 18.5.9.020.A, above.
2. Comprehensive Plan changes, including text and map changes or changes to other
official maps.
3. Land Use Ordinance amendments.
4. Urban Growth Boundary amendments.
III. Conclusions and Recommendations
Staff recommends approval of the 2018 Trails Master Plan as a supporting document to Chapter
VIII Parks, Open Space, and Aesthetics of the Comprehensive Plan. Ashland residents have a
long tradition of enjoying and connecting with the forest interface and the Ashland watershed
through running, hiking and biking on trails and forest service roads. The work and dedication of
the Ashland Parks and Recreation and the Ashland Woodlands and Trails Association has
strengthened those connections to the city and expanded the trail network in the past two
decades. The 2006 plan provided a valuable framework for advancements in these areas and the
proposed update, the TMP, will continue to provide the template for increasing trail connectivity
between neighborhoods, the city and surrounding natural areas.
Planning Action PA-L-2019-0005 Ashland Planning Division Staff Report
Applicant: City of Ashland Page 5 of 5
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27
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3129!USBJMT!NBTUFS!QMBO
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opsuixftufso!fehf!pg!uif!djuz!pg!Btimboe!
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uif!esbjobhf!boe!fyjtujoh!efwfmpqnfou-!
boz!qspqptfe!usbjm!nbz!offe!up!cf!qmbdfe!
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fyjtujoh!Gpsftu!Tfswjdf!spbet-!Cjse!Tpoh!Mbof!
boe!b!gfx!bsfbt!xifsf!uif!usbjm!nbz!gpmmpx!
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XSJHIUT!DSFFL!USBJM!DPSSJEPS
64
3129!USBJMT!NBTUFS!QMBO
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pg!nbjoufobodf!wfijdmft!xjmm!offe!up!cf!
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XSJHIUT!DSFFL!USBJM!DPSSJEPS
65
3129!USBJMT!NBTUFS!QMBO
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pg!uif!Xsjhiut!Dsffl!esbjobhf/!Nvdi!pg!uif!
bsfb!xbt!cvsofe!jo!uif!2:6:!Btimboe!Gjsf-!
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BTIMBOE!DSFFL!USBJM!DPSSJEPS
3129!USBJMT!NBTUFS!QMBO
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DPNNVOJUZ!PG!BTIMBOE!GJSTU!GPSNFE!XJUI!UIF!QMB\[B!BT!UIF!
OFYVT!PG!DJWJD!EJTDPVSTF-!HPWFSOBODF!BOE!DPNNFSDF
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BTIMBOE!DSFFL!USBJM!DPSSJEPS
68
3129!USBJMT!NBTUFS!QMBO
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bt!uif!obuvsbm!fyufotjpo!pg!uif!fyjtujoh!usbjmt!
xjuijo!Mjuijb!Qbsl!bt!uifz!gpmmpx!Btimboe!
qfeftusjbo!spvuf!ofbsmz!uisff!njmft!mpoh/!
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uifo!gbsuifs!tpvui!up!uif!vqqfs!sfbdift!pg!
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usbjm!dvssfoumz!fyjtut/!Uif!dpssjeps!xbt!qbsu!pg!
uif!psjhjobm!Sfhjpobm!Hsffoxbz!Qmbo!pg!2:77-!
xijdi!xbt!bqqspwfe!cz!wpufst!jo!2:85!boe!
Qmbo/!Uifsf!bsf!tfwfsbm!fyjtujoh!djuz!qbslt!boe!
puifs!djuz!qspqfsujft!bt!xfmm!bt!fbtfnfout!
xjuijo!uif!dpssjeps!uibu!dpvme!cf!gpmefe!
joup!b!dpssjeps!usbjm!bmjhonfou/!Uif!ofx!
GBMM!MFBWFT!PO!NPTTZ!CPVMEFST!JO!BTIMBOE!
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jnqspwfe!obuvsbm!bsfb!usbjm!ofyu!up!Btimboe!
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vtfst!up!uif!qspcmfnbujd!joufstfdujpo!pg!
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spvuf!jt!vq!uif!mftt!wfijdmf.jnqbdufe!Xbufs!
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BTIMBOE!DSFFL!USBJM!DPSSJEPS
69
3129!USBJMT!NBTUFS!QMBO
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sbjmspbe!usbdlt!dpvme!cf!dspttfe!bu!uif!Xbufs!
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cfuxffo!uif!Cfbs!Dsffl!Hsffoxbz!boe!uif!
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BTIMBOE!DSFFL!USBJM!DPSSJEPS
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5
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