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HomeMy WebLinkAbout2053 Amend Comp. Plan ORDINANCE NO. 2053 AN ORDINANCE ADOPTING AMENDMENTS TO THE TEXT OF THE COMPREHENSIVE PLAN ADOPTED IN APRIL OF 1978 BY ORDINANCE NO. 1960. THE PEOPLE OF THE CITY OF ASHLAND DO ORDAIN AS FOLLOWS: SECTION 1. The text of the Comprehensive Plan as adopted in April of 1978 by Ordinance No. 1960, is hereby amended as set forth in Exhibit "A" attached hereto and incorporated by reference as if set forth in full herein. The foregoing ordinance was first read by title only in accord- ance ~vith Article X, Section 2 (C) of the City Charter on the 4th day of December, 1979, and duly PASSED and ADOPTED this 18th day of December, 1979. ATTEST: ~ti-w ~ 1/2 ~ ~. Franklin City Recorder - Treasurer SIGNED and APPROVED this 26th day of December, 19 Introduction EXHIBIT "A" l~ Setting N/S 2. Plan Assumption: A new heading between the second and third paragraphs of the Setting section. a. add language to the second sentence; "...adopts restrictive growth policies as a result of resource constraints, with all the complexities and obligations, most people realize that some growth is inevitable". b. in the second paragraph, second sentence, change "man's", to "human". 3. Philosophical Preamble: A new heading and section following the Background section of the Introduction. Text drafted as part of the Planning Study Group's work, with staff revisions. The text is as follows: Ashland is a unique community both physically and culturally. The setting has necessitated a linear growth pattern stretching south along the front of the Siskiyou Mountains, away from the original town center. This lineal development, while permitting substantial residential development on hillsides, has produced a trend toward separation from the core of commercial, residential, and open space (Lithia Park) uses that give Ashland much of its character and appeal. Culturally, politically, and socially, the town is both varied and intensely involved for an urban area of 15,000 persons. In-migration from other areas, combined with the influence of Southern Oregon State College and the Shakespeare Festival have produced a very metropolitan atmosphere in a relatively isolated area. As a result, the community as a whole is vitally concerned with the impact of growth on the environment, both in relation to the quality of land use, air, an~Twater; and. visual/esthetic appearance. At present, Ashland relies very heavily on tourism as a major economic mainstay. Three key problems may be identified as resulting from this situation. The first is that regional population shifts within the nation are placing intense pressure on Southern Oregon, and Ashland is a very desirable portion of the area; there is a substantial interest on the part of commercial developers in Ashland (centering particularly on the South Interchange) as a result of the population increases past and anticipated. Second, the desire for a high quality of life and environment tends to produce an expensive, elitist community, which would be the antithesis of the culturally and soci~lly diverse situation that has made Ashland the center it is. Third, the stability ~f the-id~ri~t iridustry is vulnerable to a multitude of variables, including availability of natural resources and transportation access. The fragility of the current tourist orientation might be offset by the active encouragement of the development of light, non-polluting industries. # -- --.. Ashland must chart a course which maximizes community desires and meets State requirements as well. State Planning law requries cities and counties to provide adequate housing and land for expected urban expansion,provided that such expansion does not result in violation of other State Planning Goals such as: protection of air and water resou~ces, energy conservation, satisfaction of recreational needs, adequate provision of public facilities and services, and protection of open space and natural and scenic resources. Recent growth in Ashland has been of a form and quality much different from the older core area that gives the town its identity. Residential growth has tended to mean ., '';' large lots, and large houses. While it is desirable to provide such an environment where there is demand and an ability to supply land, such a pattern does not supply moderately- priced housing, nor does it blend with or complement the older parts of town. The eventual result may well be a high-priced, standarized, grid-pattern city with lots of asphalt and a quaint central area which draws tourists. . This is clearly not the result desired by the majority of Ashland residents. The guiding principle of the Plan, implementing ordinances, and most important, the day-to-day decisions that shape the community shall be to provide for growth in a way that does not destroy the things that make Ashland a desirable place to live. This statement is made in many plans, and has become something of a cliche. However, there are three very specific things that can be done immediately to implement this thought. The first is to revise ordinances and development standards to allow much greater flexibility and sensitivity toward site design, lot sizes, mixtures of uses, street paving widths, solar access, landscaping, etc. The second is to maintain a relatively tight, compact urban form, as sprawl will only serve to reduce identification with Ashland as a complete community, in addition to increasing per capita costs for services. This concept inter-relates with actions all urban areas will be forced to take in the future with regard to energy, building materials, and services as resources become more scarce, and environmental problems become more acute. The third is to regard the rapidly-growing South Ashland commercial area as a second major commercial center (inevitable in a long linear urban area), and treat it as such, instead of regarding it as a distant area of strip development. This concept would require careful implementation of design review in addition to site review, appropriate residential densities in the surrounding area, and an adequate transportation system. Two points need to be made in closing. One is that, in order to cope with growth after the year 2000, we must plan for it now, and shape development patterns and transportation systems to meet the need. Since the prime growth area due to topography and past trends is south, our attention should be focused in this direction. The final point is that conditions will constantly change, and so should the Plan. New problems, ideas, and solutions will occur frequently. However, all actions should be guided by the central, unchanging concept of Ashland as a quality living environment and exciting, diverse cultural center. Only by keeping this in mind with all of the small day-to-day decisions will the thought become reality. Land Use Classifications 1. Residential - General a. delete the fifth sentence, which reads; "Density figures are expressed in ranges." They are expressed as maximums; this is a leftover from earlier drafts, and its presence is an error. 2. Suburban Residential: Due to proposals relating to lot sizes and Planned Unit Developments, the density limitation is inappropriate, and unnecessary, as the areas are limited by housing type and zoning classification. Text should read; "This designation allows single-family residential uses, with some mixture of two-family units. Lot sizes shall be sensitive to topography (greater slope = larger lots) and the erosional and esthetic effects of hillside development. Lot sizes should be as small as will accomodate desires of the market, in order to keep housing costs down and conserve land. Specific density limitations shall be given in the Land Use Ordinance." Environmental Resources 1. General a. Policies 1. add a policy F; "In all parts of the Plan, and where dealing with impacts of development on any potential fish and wildlife habitats, such habitats shall be protected, barring a showing of essential need for conversion to urban use. The City shall create and adopt an inventory and Plan for protection of wildlife habitats." 2. Noise a. Assumptions 1. Add a first assumption; "Noise poJlution in Ashland is, and will continue to be, more serious on a per capita basis than in many areas because of the narrow, steep valley environment and resulting entrapment of, and exposure to, urban noise sources." b. Policies 1. Add Policy C; "Place increasing emphasis on bicycle routes, mass transit, alternative forms of transport in the downtown area, and other actions to reduce vehicular traffic." 2. Add Policy D; "Carefully examine all proposals for new major development or expansion of existing housing, commercial/industrial, or public facilities land uses for impact (directly or indirectly) on noise pollution. Require mitigation to the extent possible, or, if major impacts cannot be mitigated, require project modification." 3. Air Resources a. Assumption 1. add to the bottom of the Assumptions list; "The relationship between fossil fuel consumption and pollution will force changes in urban design and individual consumption patterns which must be planned for now." b. Policies 1. add Policy D; "Carefully examine all proposals for new major development or expansion of existing housing, commercial/industrial, a public facilities land uses for impact (directly or indirectly) on air pollution. Require mitigation to the extent possible, or, if major impacts cannot be mitigated, require project modification." 4. Water Resources N/S 5. Water Related Resource Areas N/S 6. Soils & Slopes N/S 7. Growth and Development a. Assumptions 1. delete the first Assumption as being redundant and pointless. 2. delete the last Assumption, and replace it with; "State Planning law requires each city and county to provide adequate land, housing, and services for expected popu+ation growth provided that such growth does not result ln violation of oth~r state Planning Goals. All growth will have c?nseq~e~ces with regard to increased pollution, traffic, crowding, and public services costs, in addition to the positive aspects of economic benefit and greater economic stability. II ~ - --- .. b. Goals 1. delete the three present Goals, and replace with; "Provide sufficient land for expected growth consistent with other Plan Goals and Policies on esthetics, the environment, services, and the desires of the people. c. Policies (delete all and replace) 1. Policy A; "Direct growth toward areas where the esthetic and service cost impacts will be minimized." 2. Policy B; "Provide services as needed, unless there is a severe resource constraint. Should such a limitation occur, explore and implement alternatives; limit or stop growth if solutions are not available." 3. Policy C; "Use innovative techniques in urban design, recognizing rapidly diminishing resources and rising costs." 4. Policy D; "Maintain the highest possible esthetic and environmental standards, consciously balancing these with the need to provide for growth." 5. Policy E; "Encourage in-filling of unused vacant land within the City to reduce the need for expansion of City boundaries." 6. Policy F; "Should the size or rate of growth of Ashland become so great that there is a concensus regarding the need for active limitation due to environmental impact, openly identify and implement solutions within the State Goal framework." 7. Coordination and Urbanization N/S Economic Development 1. Assumptions a. delete the first Assumption, and replace with; "For the present, Ashland will continue to rely on tourism and the college for economic growth; in the future, changes in the economic situation may produce the need for development of new option? for ,____ J~usiness in order to supplement the tourist industry. Though difficult. to for~see changes in the economic sltuation may be expected due to resource shortages and resulting differences in patterns of consumption." b. add an Assumption between a. above and the last one; "Ashland needs to be flexible in adapting to changes in the economic environment, and providing solutions that will maintain a strong economic base during major shifts in energy, transportation, consumption of goods and services, building rates, etc." 2. Policies a. add Policy F; "When evaluating allocation of land for new commercial or industrial growth, recognize the pop~lation/traffic/growth impact, and balance it against the perceived benefit." Land Use 1. Residential - replace entire Assumptions/Goal/Policies section as follows;" Assumptions: Ashland has experienced moderate growth over the last decade but the rise in housing costs has exceeded national, state, or county rates due to the desirability of Ashland as a place to live. The situation has become critical with the market providing largely expensive single-family dwellings for in-migrants. Continued over a long time span, such a pattern will endanger the character and socio-cultural life of the town, given the emphasis in Ashland on vitality through diversity and exchange of ideas. The current development trend also is producing residential and commercial areas drastically in contrast to those portions of Ashland generally considered to be the heart and reality of the City. New areas of large-lot, large-house subdivisions, and ugly strip commercial development with huge expanses of asphalt seem to be the trend in the future. Unless action is taken soon, Ashland.will become another quickly-developed standardized town that happens to have a quaint residential and downtown area in the middle; its character will be largely lost and many current residents will be unable to afford the cost of living in Ashland. While innovative housing is often . ~esisted because of the change it represents, it may be the only way to attempt to solve these problems. The existing residential neighborhoods represent a special quality to residents in those areas as well as to the community at large. This is especially true of older established areas with their large street trees and homes of distinct historical styles. Areas perceived as neighborhoods can also help in personal interaction and crime prevention. With rising new home construction costs and renewed historic interest, older homes and neighborhoods are becoming more valuable and desirable. GOAL: Assure a variety of dwelling types and provide housing opportunities for the total cross section of Ashland's population, consistent with preserving the character and appearance of the City. Policy #1: Given the scarcity and cost of land as a limited resource, conserve land and reduce the impact of land prices on housing to the maximum extent possible, using the following techniques: 1. Use the absolute minimum street widths that will accomodate traffic adequately, in order to reduce esthetic impacts and land and investment money lost. 2. Allow a wide variation in lot sizes, including the use of small single-family lots where feasible in relation to topography. The emphasis shall be on the smallest lots consistent with market needs and esthetic standards. 3. Consistent with policies relating to growth form, exert regulatory pressure to cause development of vacant available lots within the urban area while providing sufficient new land to avoid extreme aggravation of the inflation of land prices. This shall be' accomplished with specific annexation policies and zone change tests of public need. Policy #2: Using the following techniques, protect existing neighborhoods from incompatible development, and encourage upgrading: 1. Do not allow intrusion of non-residential or multiple-family uses into economically viable residential areas where they are likely to cause residential deterioration and conversion. Where such intrusion is planned for, clear findings of intent shall be made in advance of the area designation. Such findings shall gLve a clear rationale, explaining the relationship of the area to housing needs, transportation/access, open space and any other pertinent Plan topics. Mixed uses often create a more interesting and exciting urban environment and should be considered as a development option wherever they will not disrupt a viable residential area. 2. Prevent extremely inconsistent commercial & multiple-family designs through use of a limited design review concept, in addition to using Historic Commission review as part of the site review, conditional use permit, or variance approval process. 3. Encourage programs and efforts toward rehabilitation and preservation of exist- ing neighborhoods, and prevent development which is incompatible and destructive. Policy #3: Regulation of residential uses shall be designed to compliment, conserve, and continue the esthetic character of Ashland, through use of the following techniques: 1. Slope protection and lot coverage performance standards shall be used to fit development to topography, generally following the concept that density should decrease with an increase in slope to avoid excessive erosion and hillside cuts, with the associated esthetic blight. This objective shall be used consistent with the desire to preserve land by using the smallest lots possible. 2. Design review shall be used to ensure compatible multiple-family structures; density incentives shall be used to encourage innovative, non-standarized design in single-family areas. 3. Performance standards shall be used wherever possible so that (given Ashland's particular topographic characteristics) imaginative design may be used to reduce costs and improve the esthetic character of new development, and decrease the arbitrary uniformity of present standards. 4. In creating and adopting new development standards, the guiding principle shall be to cause new development to compliment the older, existing parts of Ashland in relation to streets, lot patterns, differentiation of dwelling units, trees, and other factors commonly ignored in mass- construction projects, but essential to Ashland. 5. Street design and construction standards shall promote energy efficiency, air quality, and minimal use of land. To this end, the City shall: adopt a master conceptual plan of future streets by size and use category; adopt minimum street width standards which provide exactly what is needed for adequate traffic flow and parking, and no more; incorporate bicycle and pedestrian traffic planning in street design; and limit street slopes, requiring curvilinear streets with topographic contouring in steeper areas. Policy #4: Create and maintain administrative systems that will assist in all phases of housing and neighborhood planning, through use of the following techniques: 1. Establish and maintain a data base system which includes measurement of: vacant land and land consumption; housing conditions; land use, land values, and any other pertinent information. 2. Building Code enforcement shall be responsive (to the extent possible under the State Code system) to housing cost and need problems, giving attention to assisting builders and homeowners with alternative materials and design possibilities. 3. Simplify and strengthen the processing approval mechanism so that the intent of state and local laws is fulfilled with the greatest possible thoroughness and efficiency. 4. Cooperate fully with the Jackson County Housing Authority in locating lower-income units in Ashland when this can be done in low-impact, relatively small developments, or through funding of individual homeo~er loans or rental assistance. 2. Neighborhoods - delete entirely; topics covered in Residential section 3. Commercial a. Assumptions 1. add a fourth Assumption; "The South Ashland Commercial area will continue to grow in importance, as it is the only area with appropriate vacant land, and the City is growing in a southerly direction. However, growth in the area has been of a quality not compatible with the City's intent to preserve esthetic and environmental quality." 2. add a fifth Assumption; "Heavy Commercial land is in short supply in the City, and is a needed part of the economic environment." b. Policies 1. modify Policy B to read; "Consider the purpose, variety, and market area of commercial activities when reviewing additions and changes, recognizing the downtown area as the primary tourist-retail, professional service and cultural center, in addition to convenience services for immediate area residents; and the southern area as appropriate for larger, more extensive retail, service, and lodging facilities, in addition to convenience services for immediate area residents." 2. modify Policy E to read; "Ensure high appearance standards for all commercial areas through Site and Design Review ... etc." 4. Downtown a. Assumptions 1. add a third Assumption; "The Downtown will decrease in importance as a general retail center in relation to South Ashland due to lack of land and less convenient parking facilities; it will transition even further to tourist- retail, professional service, and cultural uses." 2. add a fourth Assumption; "The parking situation will become a major limiting factor in future Downtown growth; the problem will have to be addressed effectively to avoid the slow death by lack of circulation characteristic of many city's downtown districts." 3. add a fifth Assumption; "To provide adequate circulation for increased traffic loads, and to cope with the pollutant and esthetic impacts of such increase, innovative ideas for transport in the immediate Downtown/Lithia Park area will need to be implemented to replace sole reliance on the automobile." 4. add a sixth Assumption; "To cope with increased demand from tourists, professional and service establishments, and local residents, the Downtown area should be encouraged to expand spatially when possible, consistent with policies concerning Residential Land Use." b. Policies 1. delete Policy A, and replace with; "Through the citizen advisory and formal planning processes, explore energy-efficient, noise and air pollution-reducing transportation and parking options, and formulate an implementation program." 2. add Policy E; "Encourage expansion of the Downtown area, taking into account Plan policies relating to Residential Land Use and Transportation." 5. Industrial a. Assumptions 1. Ashland may continue to rely primarily on economic bases other than industry, such as tourist-oriented businesses. However, small industries sensitive to the local labor market, environmental concerns, and locational restraints shall be encouraged to add strength and diversity to the economy and to reduce the impact of the highly vulnerable but primary tourist industry. b. Policies 1. add a Policy E; "Carefully examine proposed new industrial designations and uses in relation to growth and environmental implications and conformance with other portions of the Plan." Parks, Open Space, and Esthetic Environment 1. Parks a. add a new second Assumption; "Rapidly increasing use and deterioration of Lithia Park demands that we recognize the need for providing adequate funding." b. modify the second Assumption (now the third, with the addition of a. above); "Lithia Park, although a City park, is heavily used by people throughout the region and out of State." c. modify the Goal; "Provide the people of Ashland with a variety, quantity, and quality of parks and park facilities sufficient to meet the needs." d. add a Policy H; "Recognize the need to provide adequate funding to cope with increasing pressure on Ashland's parks, especially Lithia Park, due to population growth and increased tourism." e. add a Policy I; "The burden of funding the maintenance and improvement of Lithia Park should be offset by assistanh~ from Jackson County~ rather than almost totally by City property taxes." 2. Recreation N/S 3. Open Space N/S 4. Connecting Links and Trails a. add language to last sentence of Policy A; "Utilize all possible facilities: parks, open spaces, bicycle paths, easements, scenic roadway routes, railroad right-of-way, etc." 5. Agriculture N/S 6. Forest Lands N/S 7. Appearance & Scenic Areas a. Policies 1. add a Policy F; "Create and adopt a City Street Tree Plan." 8. Historic Conservation a. Policies I. modify Policy B; "The Hisotric Commission shall recommend to the City Council the establishment of ares of historic significance, and make recommendations to the Planning Commission on the alteration or disposition of structures, sites, or neighborhoods within these areas, through the design review process." 2. add to Policy C; "The Historic Commission shall encourage the voluntary preservation of historic sites and structures through public education programs." 3. modify Policy D; "Seek official designation by national, state, and local organizations of certain important historic landmar~s..." Public Services 1. General a. Assumptions 1. modify the first Assumption; "...to those they receive now, while the scarcity and cost of materials, labor, and resources will force re-evaluation of traditional methods of providing service." 2. delete the second Assumption, as it is superfluous and irrelevant in this context. 3. add a last Assumption; "Services have a maj or impact on urban design and on the effect of urbanization on the environment." b. Goal: modify the Goal to read; "...in an orderly, efficient, and environmentally sensitive way..." c. Policies 1. add a Policy G; "In conjunction with studies of housing, land use, downtown policies, etc., identify and implement innovative service techniques in anticipation of major trends, needs, and economic or environmental changes, rather than waiting to react when all options are closed." 2. Water Supply and Service N/S 3. Sanitary Sewer System N/S 4. Schools N/S Transportation 1. General a. Goal: delete the present wording, and replace with; "Provide a transportation system which is cost and environmentally efficient, and which emphasizes alternative modes of transport (including mass transit, bicycles, pedestrian ways, etc.), keeping in mind other portions of the Plan in the decision-making process, ' and the needs of the transportationally disadvantaged." b. Policies 1. add to Policy 3 to read (moving the rest down one letter); "Create and adopt a City Sidewalk Plan to be used in the development approval process." 2. add to Policy C; "Create and adopt a City Bicycle Plan which provides for usable bikeways in arterial, collector and residential streets where needed. 3. the City shall create and encourage implementation of a plan for a viable mass transit system. 2. Parking a. Policies 1. add a Policy E; "Identify and implement solutions to the Downtown parking problem which de-emphasize the role of the auto, and make maximum use of the pedestrian-oriented nature of the Plaza and Park." 3. Streets N/S Human Resources I. General a. in paragraph 112, replace the word "sometimes" with "often". b. revise the last sentence in paragraph 113; "There is a need for state and federally certified day care..." c. add to the second Assumption; "...the social service area when the service is used by, and affects, Ashland residents." d. add to the Goal; ".. . especially for children, adolescents, and seniors." e. add to Policy A; "Actively encourage social services..." f. modify Policy C; "...aid this process by planning for a community service center and branch offices of social service agencies." g. add to Policy E; "opportunities for children, adolescents, and seniors.." 2. Community Health a. Teplace paragraph 112 with; "sosc students have psychological counseling available; Ashland has a resident psychologist and psychiatrist available to the general population. The Jackson County Mental Health Center, funded by the State and County and Jackson County Children's Services Division, funded by the State, provide some counseling and services to the Community through outreach programs located in Ashland. There is an outstanding Library program serving Ashland residents in diverse, creative ways. There is a dearth of public mental health services for citizens who fall outside the seriously ill category and welfare eligibility. Programs which are needed are: mental health crisis services for all ages; adolescent mental health programs; comprehensive diagnostic services in mental health; all integrated within the current medical community. Preventive services are scarce and most pressing in this community is the need for a Teen Center." b. replace Policy A; "Encourage financially accessible mental and physical health programs for all age groups through City and County fiscal support." c. Add Policy B; "Support the continued development and existence of outreach services to the community provided by county, federal and private agencies." 1 1 Additional Changes Requested by the Department of Environmental Quality 1. pg. 11-13 There are specific State noise regulations applying to the sale of new motor vehicles, in-use motor vehicles, and industry and commerce. 2. pg. 13 Air Res., 2nd paragraph, last sentence - "...Air Quality Maintenance Area for suspended particulates, carbon monoxide, and photochemical oxidants. 3. pg. 63 Solid Waste, 3rd paragraph; change 1977 to 1976.