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Home My WebLink About1960 Adopt Comp. Plan / UGB '/ ORD I NANCE NO. 1960 AN ORDINANCE ADOPTING THE COMPREHENSIVE PLAN TEXT AND COMPREHENSIVE PLAN MAP, INCLUDING THE DELINEATION OF THE URBAN GROWTH BOUNDARY: AND DECLARING AN EMERGENCY. THE PEOPLE OF THE CITY OF ASHLAND DO ORDAIN AS FOLLOWS: SECTION 1. The text of the Comprehensive Plan, attached hereto and marked Exhibit "A", is hereby adopted and incorporated into this ordinance by reference as if set forth in ful I herein. SECTION 2. The Comprehensive Plan Map, including the del ineation, of the Urban Growth Boundary, attached hereto and marked Exhibit "B", is hereby adopted and incorporated into this ordinance by reference as if set forth in ful I herein. SECTION 3. The report of the Jackson County Department of Planning and Develop- ment regardin!~ the Ashland Urban Growth Boundary, including information from the Ashland Planning Department, attached hereto and marked Exhibit "C", is hereby adopted and incorporated into this ordinance by reference as if set forth in fu II herein. SECTION 4. That inasmuch as appl ications for Zone Changes and Annexations have been held in abeyance pending the adoption of the foregoing, it is hereby deter- mined that the pub'ic health, peace and safety require that an emergency be de- clared, and this ordinance shal I become effective upon second reading and upon signature by the Mayor and City Recorder. The foregoing ordinance was duly provided in accordance with Article X, Section 2ec) of the Ashland City Charter; and was first read by tit~e only at a regular meeting of th,e City Counci I held on the 18th day of April, 1978, and PASSED to its second reading by title only and duly ADO-TED at a regular meeting on the 18th day of April , 1978. '7rl /LA{ ~ ~~~~ Nan E Frankl in City Recorder SIGNED and APPROVED this 18th day of April, 1978. , 1978. ~:.... " ...- ~~'.J. . . CiTY OF ASHLAND COMPREHENSIVE PLAN COUNCIL HEARING DRAFT Apri I ~, 1978 (f -i- TABLE OF CONTENTS Page I. INTRODUCTION Setting Backswound 2 3 II . PLAN TEXT SCOpE~ Gener-a I i ty Format Definition of Terms 3 3 3 4 I I I . PLAN MAP Purpose IV. LAND USE CLASSIFICATIONS Residential - General 5 Rura il Res i dent i a I 5 Suburban Residential 5 Urban Low Residential 5 Urban High Residential 6 Downtown Commercial 6 Reta i I Commerc i a I 6 Hi gh'rlay Commerc i a I 6 Heavy Commerc i a I 6 Light Industrial 6 Heavy Industrial 7 Pa rks 7 Open Space 7 Agriculture 7 Forests 7 Pub I i c Schoo I s ~I F ac i lit i es 7 V . REV I EW AND AMENDMEi~T VI. PARTICIPATION V II . ENV I ROINMENTAL RESOURCES General No i se Air Resources Water Resources Water Related Resource Areas Soi Is and Slopes 10 II 13 14 15 16 V III . GROWTH AND DEVELOPMENT Population Growth Coordination and Urbanization 21 25 28 Page IX. ECONOMIC DEVELOPMENT Basic Economic' Growth Areas & Employment in Ashland 29 X. LAND USE Residential Neighborhoods Commercial Downtown Industrial 34 39. 40 42 43 4 XI. PARKS, OPEN SPACE, AND ESTHETIC ENVIRONMENT Parks 46 Recreation 49 Open Space 50 Connecting Links & Trai Is 51 Agriculture 51 Forest Lands 53 Appearahce & Scenic Areas 55 Historic Conservation 57 XII. PUBLIC SERVICES General 58 Water Supply & Service 59 Sanitary Sewer System 61 Sol i d Waste 63 Schools 64 X III. TRANSPORTAT ION 8 General Parking Streets 67 68 70 8 XIV. HUMAN RESOURCES General Community Health 74 75 xv. APPENDIX Proposals for Future Action 76 - i i- MAP S Number Paqe 1. LOCATION OF ASHLAND, OREGON 2. MINERAL AGGREGATE RESOURCE AREAS 12 DEGREE OF SOIL LIMITATIONS FOR: 3. 4. 5. Dwel I iogs with Basements Roads and Streets Septic Tank Absorption Field 18 19 20 38 . 41 44 48 52 54 56 60 62 66 69 73 6. RESIDENTIAL DEVELOPMENT 7. DEVELOPED COMMERCIAL LAND 8. DEVELOPED INDUSTRIAL LAND 9. PUBL I C PARKS 10.; AGRICULTURAL LANDS 11. FOREST LANDS 12. AREAS OF NATURAL SIGNIFICANCE 13. WATER MAINS 14. SEWEh MAINS 15. PUBLIC SCHOOLS 16. DOWNTOWN PARKING 17. 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Developed Acres Industrial Non-Industrial ASSUMPTION: * There wi I I be an improvement in the abi lity to determine the potential effects of industry. GOAL: HAVE A VIGOROUS AND DIVERSE INDUSTRIAL SECTOR. POL IC I ES: A. Encourage publ ic awareness of industrial policies and standards. B. Encourage a viable and diverse industrial sector by: I. Providing a variety of areas of different kinds and in different locations. 2. Encouraging variety and innovation in industrial developments. 3. Having a review process which al lows some flexibil ity in industrial location and design. C. Encourage clear, equitable standards relating to performance for indus- trial development in each industrial area, with standards including emission levels, aesthetic amenities, environmental siting and compati- b i I ity factors. D. Encourage efficient industrial areas by planning mutual facilities and compact development areas. -46- PARKS, OPEN SPACE, AND ESTHETIC ENVIRONMENT PARKS Parks are vf~ry important as they provide breaks in the ur~an patterns, provide recreational space, contribute to the physical and mental health of the commu- nity, improve the character and land value of nearby neighborhoods, are a source of community pride, and can help attract industries seeking a high level of env i ronml~nta I qua I i ty. Population increases wi I I spread development to new areas, and the impact of increased tourism wi I I place an additional strain upon present park and re- creation fac:i I ities. When these factors are combined with the special re- creation requirements of some segments of the community (especially the young and theeldl~rly), and with a rise in the amount of leisure time avai lable, the need for additional facil ities and programs becomes evident. Ashland now has 176.45 acres of parkland; however, 57 acres are in the Lithia Springs property outside the City I imits. There are 61.26 acres of developed park land, '~ith 39.5 acres in Lithia Park and the Park extension. Ashland's developed park acreage is lower than national standards (10 acres for every 1,000 people), lower than national projected needs (15 acres for every 1,000 people), and lower than park averages in some other communities - for example Eugene and Albany (see Table I). This low acreage is somewhat offset by the fact that there are many acres of open space, agricultural land and forest. Lithia Park is used partly as a regional park, and fhat fact is not often reflected in acreage comparisons. Ashland has relatively little acreage in neighborhood parks, pocket parks, and other types of recreational areas. TABLE I. A(:res of Oeve loped Park Land Acres/Thousand Population Ashland Albany Med ford Salem Eugene Source: City Planning Department 4.22 5 . 8.33 10.5 15.3 Although per capita park acreage is one indication of meeting park needs, so also are th'e size, types, and locations of parks. Park types can be classified as follows: reqional, urban, community, neiqhborhood, pocket, and special areas. A reqional park serves a county area, emphasizes an outdoor setting, and usually has faci lities for picnicking, swimming, etc. Emigrant Lake Park is a regional park, and is heavily used by county residents. An urban park emphasizes passive recreation, may have picnic and zoo areas, and serves a population of from 10 to 30 thousand people. Lithia Park is an example of an urban park, but its use by many people outside the City makes it somewhat regional in nature. A community park emphasizes active recreation such as sport fields and tennis courts, and should be within three miles of the area it serves. Hunter Park is a community park, but even when fully developed, it wi I I not meet community needs. Ashland has a few nei~hborhood parks such as Garden Way Park. ,.~I -47- Neighborhood parks are designed to be within a one-half mi Ie radius of the area they Slerve, and are related to the character of the neighborhood. Neigh- borhood parks also include school-parks which uti I ize school faci I ities in con- junction with' a community or neighborhood park. There are several advantages to the school-park concept as school faci I ities are used during the summer months and non-school hours, providing faci I ities for al I .age groups, el imi- nating dupl icationof faci lities, and cutting operating and maintenance costs for both the Parks Department and School District. Although school faci I ities are suitable to meet recreational needs, they are not presently designed or maintained in Ashland for general publ ic use. Pocket parks and special areas are sma I I areas which satisfy special needs: a place for relaxation in. a dense. urban rea; a spot for a specific recreational . activity; or simply an area giving visual pleasure. Tria~gle Park park; the Plaza is an example of a special area. ASSUMPTIONS: * There will. be an increase in park needs because of: I. An increase in Ashland's population. 2. A reduction in vacant lands used informally as park areas. 3. An increased desire for a natural environment to offset a rise in urban pressures. 4. An increase in leisure time. * The County and State wi I I continue to assist in Ashland's regional park needs. Lithia Park, although a City park, wi I I continue to be used by people throughout the region. * The incr'easing cost of parks and recreation centers wi II make the school- park concept increasingly attractive. * With increased transportation costsand.increased population densities the need for rieighborhood and pocket parks w'i'l I continue to gorw. GOAL: PROVIDE THE PEOPLE OF ASHLAND WITH A VARIETY OF PARKS AND PARK FACILITIES. POLICIES: A. Encourclge information programs which explain the need for parks, the trends and types of use, and how Ashland programs compare with other communities. B. Encourage a park land acquisition plan in accordance with community growth and projected park demand. Encourage acquisition wel I in advance of Aactual needs. C. Encourage development of the Bear Creek Greenway, including the Ashland Creek tie to the City Park System. D. Encourage the expansion of areas for active recreation, such as Hunter Park. E. Encourage school-park developments. F. 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(/) 0) .., < CD CJ -+ CJ 0" IJ} CD c: -0 -< . o IJ}- O-+CDCJ-+ :::J::r(/)O"::r-l < (t) _0 CD '3"- CD 0 - -. .., < -h -0 "'0 (/) (/) 0) -+ .., -0 - -h -< CD "'0 OCCJ I.., :::J CD , 0 CD · 3-h (/) I CITY OF ASHLAND, OREGON o AGRICULTURAL LANDS I ...... ,.,... ........... . .......... . ........... . .......... . .......... .. I......... . ........... . 1.1........ . ........... . ....... ,.,.. .......... . .......... . . . . . . . . . . . . Class Class II Class III Class IV a I>> 'a ... o -53- GOAL: IDENTIFY AND PRESERVE AGRICULTURAL LAND FOR AGRICULTURAL USE. POLICIES: A. Agricultural lands of soil classes I, I I, I I I, and IV shal I be preserved except where irreversibly committed to urban uses. This shall be done through use of exclusive farm zoning. In preserving prime agricultural land the economic consequences shal I also be considered. B. Encouri9ge the retention of existing farms and areas of productive soi Is, especially when they provide open space and visual benefits. C. Encourage programs which support and improve area farming, such as irri- gation and drainage systems, and environmental and economic management practices. D. Encourage the reduction of urban pressures (for example, pressures caused by premature service availabil ity or service assessment practices) which tend to convert farm lands prematurely to urban uses. E. Where possible, exclude Class I through IV lands from the Urban Growth Boundar~y . F. Encourclge the retent i on of agr i cu I tura I I ands outs i de the Urban Growth Bounda~'y through County coordination procedures. FOREST LANDS Forest lands in and around Ashland provide many benefits to the community. Not only does the timber provide lumber and jobs for local industry, but forest lands also provide wildl ife habitats, scenic views, and recreational opportunities. Although timber cutting can have some adverse effects (such as water po II ut ion an(~ so i I eros ion), the effects can be reduced by sound management practices. Forestland directly above Ashland is especially important to the City because streams originating in that area flow thorugh Ashland, and those lands have high scenic value. Most of that area isin private ownership, w~ich makes timber resource management more difficult. There is pressure to convert some of this property to residential uses, and it must be recognized that any type of development creates problems of uti I ity service and fire hazards. ASSUMPTION: * The importance of forest areas around Ashland wi I I inctease, especially in regardt<:> their recreational and scenic value. GOAL: PRESERVE FOREST AREAS FOR THEIR VISUAL AND ENVIRONMENTAL QUALITIES, AND FOR THE TIMBER RESOURCES. POLICIES: A. EncouraHe the retention of forests, keeping them for multiple-use purposes where pr~act i ca I. CITY OF ASHLAND, OREGON / '/ l I \J1 ~ I \.\ J -e~jgro,." f:r. .\ I \., / , ~ o .:.:. ..:.:.:. :.:.:.:.: .:.: .:. :.:.:.:.:. .....,............................. .a,.. 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"0 ~ map 1,5 TRANSPORTATION GENERAL -67- The purpose of a transportation system is to I nk people and their social and economic organizatrons together. The type of ystem used depends on such factors as c:ost, speed, health, safety, conven ence, capacity, parking, terrain, and land-use patterns. Today the pr'edominant form of transportation res I dents e)c~c J us I ve I y use the automobile for and to commute th roughout the va II ey to work. automobile. Many Ashland and recre~tional purposes Other'forms of tra.nsportation besides the. aut bi Ie are bus" air, truck, and rail transportation, bicycl ing and walking. T e Rogue Val ley Transportation District has developed a regional bus system t at includes Ashland. The primary routes are along the City's arterial a d col lector streets. Ashland has a City-owned airport which is designed for smal I planes. Potentially, rail transportation also could be used by Ashl nd residents provided pre?ent facilities were upgraded. Bicycling can be an effective means of transpo tation provided bike routes are designed to be fast and direct with adequate s fety provisions. Currently there is no existing circular or through bicycle path system in Ashland. Walking, as a transportation alternative, is u ual Iy only effective in high density areas where short trips are possible. . The success of other modes of transportation wi I I partly depend on the supply and cost of fuel to run the automobile. As this energy source becomes scarce the possibil ity of, for example, walking rathe than driving wi I I become more apparent to the general population. I tis i nterE~st i ng to compa re the energy ef fie i ncy of the other modes of transportation. Table I illustrates the compa ative advantage of each mode relative to energy cons'Umption. Walking is roughly one hundred and forty times more efficient than center city driving in a car. More efficient still is travel by bicycle.' TABLE I. Transport ~nergy consumption in joules/ person/IOO km, for various travel modes; adapted from N. Po I e, Oi I and the Future of Personal Mobil i ty, Eco-Pub I i cations, Cambridge England 1973 p. 17 fig. II ......... . ........ . ......... . :::::::::.:::::::::::::::;:: ::::::::::::::::::.:.:.:.:: : 50 Train 750 passengers 100 passengers Aircraft 80 passengers Car 4 persons 3 persons 2 ersons 100 150 200 250 1 person 300 ... t'........",',...~ -68- . 1Energy, Environment, and Bui Iding, Phil ip Steadma~, Cambridge University Press, Cambridge, London, New York and Melbourne, 1976, pg. 286 2Joules is defined as being the energy expanded in one second by an electric current of one ampere in a resistance of one ohm. ASSUMPTIONS: * Bicycle and pedestrian pathways wi I I play an increasingly important role in the transportation system. * Fuel shortage and environmental problems may,result in technological changes. ln our energy sou~ces for transportation. * Trucking wi I I become increasingly important. * Air transportation wi I I become more important. * People wi II not easi Iy give up the private use of their automobiles. GOAL: INCREASE THE AVAILABILITY, COMFORT, AND CONVENIENCE OF ALTERNATE TRANSPORTATION SYSTEMS IN ASHLAND FOR ALL CITIZENS INCLUDING THE TRANSPORTATIONALLY DISADVANTAGED. POLICIES: A. Coordinate the City transportation system with county, regional, state, and federal plans. B. Require the provision of sidewalks in al I new commercial areas, in multi- ple residential areas and in urban housing developments. AI low paths in rural areas. c. Locate pedestrian and bicycle pathways away from vehicular traffic and along contours that have a minimum change in grade. D. Encourage pub I ic and private efforts to provide different transportation' modes as a I ternat i ves to the automobile . E. Encourage increased car occupancy. F. Recognize the special needs of the handicapped ,in transportation systems. PARKING Traffic congestion in the downtown area is increased by on-street parking and by an inadequate number of loading zones. The number of parking spaces per business is higher than in many cities, but inadequate when the Festival is operating (see the map of downtown parking spaces). Garages and carports provide the normal off-street parking in residential areas, but there is a prevai ling tendency for residents and visitors to park in the driveways located in the front yard setback area. . lITHIA PARK ~~ :::::~~:~i~?-. \ 1i} 1, \ .. c; \ CP- \ 69 . \ , J ::::::::::::::::: ::::::::::::::::: W%% :::::::::::::::::: ................... 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Develop a social services plan I isting available social services and determining how they can help Ashland problems. Provide coordination among service programs. Monitor new services and fit them into this overal I plan. I. Provide a wel I planned and we! I financed multi-service center ~or human resource programs. General HUMAN RESOURCES 6. Consider the extension of the fol lowing streeti: a) Westwood Street south to Strawberry Lane b) Grandview Drive west to Ashland Mine Road c) Nevada Street west to Jackson Road d) An arterial paral lei to the Southern Pacific Rai froad tracks from Normal to Mountain Avenue e) Eagle Mil I Road east to Mountain Avenue , . 5. Encourage street design so that gradients within 100 feet of intersections do not exceed 15% (5% in heavy snow areas), and make every effort to keep them below 5%. 4. Develop more roadside turnoffs and surface them with pervious materials where geologic conditions permit. 3. Require roadway projects to include: a) Landscaping design in the planning and execution stages. b) Minimal disturbance of terrain and natural vegetation. c) Maximum consideration of scenic possibi I ities. d) Minimal development opportunities adjacent to highways. 2. Any updated BCATS plan should be considered by the Citizens Planning Advisory Committee during teh annual review of the Comprehensive Plan. c) Establ ish a street capacity for each road based on the anticipated uses set forth in the land-use plan. d) If a street's designation (focal, col lector, arterial) is proposed to be c~anged, the affected neighborhood should be consulted as part of the planning process. e) Route new local streets and driveways to fol low the natural terrain avoiding wherever possible excessive cuts and fi I Is. -89~ . . .wa+SAS le~~a~a~-4+lea4 e dOlaAaa .L .sa~!A~aS e~e~ 4+lea4-aw04 a6e~no~u3 -9 . le+!ds04 a4+ puno..Je sa!+!1 !~e~ a..Je~ papua+xa AI le!~adsa 'saw04 "5u!s~nu ~o +uawaAo~dw! pu~ +uewdolaAap a4+ a5e~no~u3 .~ .sa!+11 !~e~ a~e~ 4+lea4 ~! Iqnd pue 'Ie+uap 'Ie~!paw au!qwo~ PlnOM 4~!4M puel4sv U! ..Ja+ue~ I~~!pew ~ ~o +u8wdol8A8p 84+ e5~..Jno~u3 .v .puel4sV +n046no..J4+ sa~!}~o ,s~auo!+!+~e..Jd le..Jaua6 86e~no~ua +nq 'sasn pa+e,a~ Je~!paw leuo!+!ppe ..Jo~ le+!ds04 a4+ puno~e ea~e a4+ ~o +uawdolal\8p a6e~no~u3 -f .swe~60~d 4+lea4 le+uaw 6u!4S! Iqe+se u! a~!A~as 4+le8H le+u8W 84+ 4+!M ~~OM 0+ s8!~ua6e a~!A~aS le!~os ~a4+0 a6e~no~u3 .Z .we~60~d e 4~ns ~O~ uo!+e~ol e 6u!P!Ao~d Aq we~60~d S8~!^~aS 4+lea4 '~+U8W 84+ ~o puel4sV u! uo!SUedX8 84+ 86e..Jno~u3 ., 4+leeH ^+!unwwo~ -06- _.,.-. ~:/ ~ ......... I ~c-O~ :,,,.....,......., ~ i EVALUATION OF URBAN GROWTH BOUNDARY PROPOSALS FOR THE CITY OF A HLAND t~ ~. A STUDY OF UR AN GROWTH IN AND ARDUN THE CITY OF ASH AND .. ~ .' ~; , .., '" .. JACKSON COUNTY DEPARTMENT OF PLANNING AND DEVELOPMENT . t1ARCH 1978 ) I. INTRODUCTION: ~ The, Oregon Land Conservation and Development Commission (LCDC) administers a number of Goals and Guidelines to assist local planning efforts. For Jackson County, Goal 14 Urbanization requires the identification of urban, urbanizable and rural land within the County and the establishment of urban growth boundaries around each of the cities in the County. The urban growth boundary is a site specific b04ndary which separates urban and urbanizable lands from rural lands. The formulation and adoption of an urban growth boundary is a joint process among the city, the County and all affected agencies. Input from established citizen advisory g}'OUPS and other interested citizens is also an integral part of the process. The process of establishing an urban growth boundary around the City of Ashland began in January 1974. At that time, the City of Ashland planning staff began collecting data relatiing to the revision of the City's Comprehensive Plan. The urban growth boundary was considered to be an important component of the Plan. By January 1975, citizen committees were formed to assist the Ashland planning staff in formulating a revised Comprehensive Plan including an urban growth boundary. A number of neighborhood meetings were held to refine the Plan and urban growth boundary proposals. During the planning process the Ashland (City) Citizens Advisory Committee (CAC) proposed an urban growth boundary encompassing approximate.ly 1785 acres outside the Ashland City limits. The Ashland-Pinehurst (Rural) CAC supported the City CAC proposal. During 1976 and 1977, the Ashland Planning Commission held public hearings regarding a draft City Comprehensive Plan which included urban growth boundary proposals. The City Planning Commission recom~ended to the Ashland City Council that an urban growth boundary, which contained approximately 2540 urbanizable acres, be adopted. In .August, 1977, the Jackson County planning staff prepared a report evaluating the urban 9rowth boundary proposals of the Ashland Planning Commission and of the CACs. The staff report made suggestions regarding compromises between the two proposals a.nd proposed urbanization policies to guide urban growth in the Ashlan1 area. : ! The full uY'ban growth boundary report was sent to 18 affected agencies and a summary report to 215 agencies, all of which had received copies of the Proposed Ashland Comprehensive Plan.' City and County planning staffs held a public infor- mational me'eting and discussions \1lith' the City a'nd Rural CACs regarding the City's proposed boundary, the County planning staff's position regarding the boundary proposals, and the urbanization policies. The City of Ashland and Jackson County Planning Commissions held a joint public hearing on September 21, 1977. At a joint Planning Commission Subcommittee meeting on September 28, 1977, public testimony received at the hearing the week before and affected agency comments were considered, along with additional explanation from the Ashland planning staff regarding the City Planning Commission's proposed . boundary. The Subcommittee agreed on the delineation of five of the seven areas of the proposed boundaries which were under discussion and recommended: a) Joint Planning Commission agreement on the five areas; and, b) Joint Planning Commission discussion regarding possible resolution of the two remaining areas of concern. - I , " 2 On October 5, .1977, the two Planning Commissions held a second public hearing. At that time, the Commissions agreed to a set.of urbanization policies but failed to agree on an urban growth boundary line. The Ashland Planning Commission concurred with the Subcommittee regarding the five areas and added to the urban growth area all the land in the two areas on which the Subcommittee members could not agree. The Jackson County Planning Commission recommended a boundary which was a slight modification of the Subcommittee proposal and excluded the two areas on which the Subcommittee could not agree. ' The separate recommendations were forwarded to the Ashland City Council, and the Jackson County Board of Commissioners. The City Council and Board of Commissioners held a public hearing on the Planning Commission recommendations on October 19, 1977. At that hearing, the governing bodies agreed to a tentative urban growth boundary. . Throughout November and December of 1977 the City Council held neighborhood hearings on the proposed City Comprehensive plan, and the urban growth boundary. During January and early February of 1978 the Council had study sessions, during which they refined the tentative urban growth boundary. On February 28, 1977, the City Council and Board of Commissioners met to consider the boundary as refined by the City Council and to reconsider the proposed urbani- zation policies. The boundary and policies were refined at that meeting, and an agreement on the Ashland Urban Growth Boundary and urbanization policies was reached. This report discusses the formal process used in establishing the Ashland Urban Gro\'Jth Boundary, the reC'jui rencnts of the ~tatewi de P1 anni ng Goa 1 s \'Ii th respect to urban growth boundaries, and the factors considered in the -delineation of an urban grO\'Ith boundary for Ashland. In addition, the boundary itself is discussed; policies for administering the boundary are presented; and the review and amendment proced- ures for cha,nging the boundary and policies are set forth. - II. THE PROCESS FOR ESTABLISHING URBAN GROWTH BOUNDARIES: An informal timeline for establishing an urban growth boundary was jointly approved by the Ashlalnd City Council, the Ashland Planning Commission, and the Jackson County Planning Commission. This timeline stated the procedure for establishing such a boundary and outlined the following eight steps: 1) City-County staff will begin with preparation of maps, data compilation, including input from affected agencies. 2} Pre~parati on of a j oi nt Ci ty-County staff proposa 1 for an urban grm'lth boundary plan including plan map, written explanation, and recommended policies. 3) Report mailed to respective planning commissions and affected agencies. 4} Review process initiated by the Planning Commissions and affected agencies for rev'iew of the staff document, which includes: A) Review by committees formed from planning commissions and affected agencies. B) Joint meetings (full commissi,ons' or boards).. C) Public hearings. 3 .. '5) Rj~visions in documents arid map per policy body (planning agency) d'irection and document now becomes City-County proposalt rather than staff proposal. 6) Plrocess initiated to amend comprehensive plan maps and texts by County and C'j ty as appl icab1e. 7} Planning Commission public hearings: A) Adjustments or revisions as determined by the Planning Commission. B) Findings and final recol1111endation entered. 8) Board of Commissioners and City Council public hearings. Due to tim"ing problems t the City and County planning staffs were not able to \'Iork jointly on one proposalt but beginning with step 4t the process became more co- ordinated. .. As can be seen from the above schedulet several public hearings were held to review proposed urban growth boundary proposalst and the policies formulated to administer the boundary. Citizen input was critical to the process. III. STATEWIDE PLANNING GOAL CONSIDERATIONS: Pursuant to Senate Bill lOOt the LCDC established fourteen Statewide Planning Goals and Guidelines designed to provide coordination and continuity to local planning efforts. The joint establishment and adoption of an urban growth boundary is part of this coordinated effort. Goal 14, urbanization, is the single goal which specifi- c~lly addresses the question of urban growth boundaries and requires their establish- ment. The oth~r thirteen goals must also be considered in the establishment of a bounda t.?y~' , Goal 14 provides definitions relevant to urban growth boundaries. Jackson County will amend the County Comprehensive Plan to include the followi,ng definitionst which are based on those provided in Goal 14: Urban land: Residential areas generally comprised of parcels less than one acre in area, or highly developed comme.rcial and industrial areas in the County which are contained within incorporated cities or which contain concentrations of persons who generally reside or work in the areast including lands adjacent to a~d outside of incorporated cities and which have sUPPpo~ed urban facilities and services. Urbanizable land: Areas within an officially adopted urban growth boundary whi ch are needed for expans i on of an urban a'rea and whi ch have been deter- mined to be necessary and suitable for development as future urban land and which can be served with supporting public facilities and services. Urban Growth Boundary: A generalized boundary line imposed on the Comprehensive Plan Map of Jackson County and a site specific line imposed on the Zoning Ordinance Maps of Jackson County which identifies and encompasses urban and urbanizable lands. In addition to the above three definitionst lCDC also sets forth the following definitionst not formally adopted by Jackson 'County, but equally applicable to the urban growth boundary process: I , i ' 4 Agricultural Land: In western Oregon is land of predominantly Class I, II, III, and IV soils and in eastern Oregon is land of predominantlyClas5 I, II, III, IV, V, and VI soils as identified in the Soil Capability Classification System of the United States Soil Conservation Service, and other lands which are suitable for farm use taking into consideration soil fertility, suitability for grazing, climatic conditions, existing and future availability of water for farm irrigation purposes, existing land use patterns, technological and energy inputs required, or accepted farming practices. Lands in other classes, which are necessary to permit farm practices' to be undertaken on adjacent or nearby lands, shall be included as agricultural land in -any event. Urban Facilities and Services: Basic facilities that are primarily planned for by 10c~1 government but which also may be provided by private enterprise and ~ are ~ssentlal to the support of development in accordance with the City Compre- henS1VE!.P1an. ~rban facilities and services include police protection; fire protectlon, sanltary facilities; public water facilities; storm drainage facilities; planning, zoning and subdivision control; health services. recreation facilities and services; energy and communication services~ and commun~ty governmental services (including schools and transportation.) Rural Land: Rural lands are those lands which' are outside the urban growth boundary and are: A) Non-urban agricultural, forest or open space lands or, B) Other lands suitable for sparse settlement, small farms, or acreage homesites with no or hardly any public services, and which are not suitable, necessary or intended for urban use. In addition to the above stated definitions, Statewlde Planning Goal 14, provides that the establishment and change of urban growth boundaries be based upon con- sideration of the following factors: 1} Demonstrated need to accommodate long-range urban population growth requirements consistent with LCDC goals; 2) Need for housing, pmp10yment opportunities, and livability; 3) Orderly and economic provision for public facilities and services; 4} Maximum efficiency of land uses within and on the fringe of the existing urban larea; 5) Environmental, energy, economic and social consequences; 6) ~etention of agricultural land as defined, with Class I being the highest priority for retention and Class VI the lowest priority; and, 7) Compatibility 'Of the ,proposed urban uses with nearby agricultural activities. ~/._ _:. . 5 The goal also addresses .th~ transition of lands within the urban growth boundary from rural to urban us~s and estab)ishes the following criteria as a basis for urbanization policies: . 1) Orderly, economic provision for public facilities and ser~ices; 2) Availability of sufficient land for the various uses to insure choices in the market place; 3) The other lCDC goals; and, - 4) Encouragement of development within urban areas before conversion of urbani zab 1 e areas.. ' I. I ~ I * IV. URBAN GROHTH FACTORS: . . '. ~';i ~ I" , B, ~~.;. f} r 1 This section discusses the factors considered in the delineation of an urban growth boundary for Ashland. .The City of Ashland planning staff gathered data re,gardi ng many of the factors re 1 a ti ng to an urban growth boundary for the Ci ty. Whenever possible', this report relies on that data. Hhere necessary, the data is expanded to reflect the broader perspective of the County p1~nning situation. A) JPopu1ation: The following is a synopsis of a section of the Ashland Comprehensive Plan whi ch prov'j des a good exami nati on of the Ci ty 's past gro\'/th trends and popu- lation projections. Population Trends: Between 1940 and 1977 population in the City of Ashland increased by 10.,141, a growth of 214 percent. The decade from' 1'940 to 1950 brought rapid' growth (63%). ,Growth slowed to 18% during the next decade, but the rate of growth increased'to 35% during the 1960 to 1970, period. Between 1970 and 1977 the City's population increased 21 percent. Table 1 summarizes the growth trends and compares . Ashland's pO'pu 1 at i on growth wi th that of Jac kson': County. The 1978 . population of the City is e'stimated to be 15,123 (Portland'State Estimate for December, 1977.) .",':' ; i, " ~' " - . . - -- ._- - TABLE 1 POPULATION AND PERCENT CHANGE IN POPULATION: . ASHLAND AND JACKSON COUNTY, 1940 - 1974 , d ~~ . 1960 1970 1977 ~ 1940 1950 - rt 7,739 9,119 12,342 · 14,885 ft City of Ashland 4,744 .;! ( 63. 1 %) (17.8%) (35.3%) (20.6%) . Jackson County ,36,213 58,510 73,962 94,533 118,500 (61.6%) (26.4%) (27.8%) (25.4%) " Primary Source: 1940-1970 Population and Housing Trends" Cities and Counties of Oregon., *Source: U~S. Census,fstimates, certified by Portland State University Census Section. I , 6 I Population Projections: The City.of Ashland projects city population to increase to 21,000 by the year 2000. The population estimate results from an extension of growth trends from 1940 to 1978, during which time the average increase per decade was 2,731 persons. The projection actually yields an increase of 6,008, or 39.7% from the 1978 population of 15,123 to 21,131. City growth is due to natural increase, immigration and annexation. T~us w~i~e a portion' of the 6,008 extra people expected within the . Clty llmlts of Ashland by 2000 will be new individuals born in the area or migrating into the City, a portion will be current and future resi- dents in fringe areas which will be annexed to the City. Between 1960 and 1970 about 30% of the City's growth resulted from natural increase 40%, from immigration and 30% from annexation. ' .. _.~_._- t ;. .. ;jO . ..--.-. ..... -- ..-- ...... - -_. - ~... - B} ENVIRONMENTAL FACTORS: located at the southeastern end of the Bear Creek Valley, the City of Ashland has a visually attractive character defined by forested mountains and valley floor grasslands and farms. With urbanization, the natural quality of the area has 'been affected by air, water and noise p011ution and soil erosion. The capability of the physical resources in the Ashland area to accommodate further urban growth is an essential consideration in the delineation of an urban growth boundary. This' section examines the physical problems and potentials related to the expansion of the City. Iopography and Geology: \~hile much of the recent residential develop- ment in the City has occurred on the valley floor, a large portion of Ashland is located on steeply sloped land. Due to excessive slopes, the .City's expansion potential is somewhat limited to the west and south. \~'est of Ashland's current western boundary, the land slopes steeply up- ".lard. On tile northwest side, in the vicinity of Ashland t1ine Road, exists an area of more moderate slopes. Excessive slopes run perpendicular to the southern boundary of Ashland, except in a small area to the southeast (along Tolman Creek Road and Clay Street) which is somewhat more moder- ately.s1oped. (Refer to Map 1.) , Inside the City the land generally slopes downward in a northeasterly direction from the area above Lithia Park. While the southwestern por- tion of the City is built on very steep hills, the northwestern portion lies on more gentle hills. The area to the east of Highway 99 is much more gently sloped down to Bear Creek. From Bear Creek the land slopes gently upward to the northeast for about two miles at which point the slopes generally begin to be much steeper. Expansion of the City to the south and west is very expensive since . development on and the provision of services to areas of excessive slope require special design and siting controls. Related to the problenJs posed by topography are hazards resulting from the area's geology. J\ geologic reconnaisance reported by the Soil Conservation Service (Resource Conservation Data for Land Use Planning and Conmlunity Deve- l~ment, City of Ashl~lnd 1975) found that the at'ea has a moderate to Elgh landslide potential, and soils in the area are also highly sus- ceptihle to erosion. The problems of erosive soils in Ashland Creek w'atcrshed are discussed in the section of this report regarding the City'S water system. -- 7 ,. Floodplains: Intensive urban development should not occur within areas which are subject to frequent flooding. In the Ashland area the major streams are Bear, Ashland, Toln~n and Neil Creeks. The flood hazard season is from November to March, and some flooding can occur if more than 2 inches of rain fall in a 24-hour period. Flooding in urban areas often results from man's interference with natural stream channels. Blocked culverts or storm sewers can cause extensive flooding. Some recreation facilities such as trails can be provided in floodplains and most floodplains serve as fine urban open space. Detailed floodway information i~"now being prepa"red for Bear Creek and should become available during 1978. , ",'f .~ I~ f- ~ r I ~ tJ t~ [1 ~ J,',~...I,". ..~ t~ ti f~ t.~ . J,f1 '" " . " . .~'.'..'.:... - ... f: ~ ~ ,.,:: Soils: The following sectiqn, .quoted from Resource Conservation Data for land Use Plannin and Communit Develo ment, Cit of Ashland (U.S. Department of .Agriculture" Soil Conservation Service, 1975 provides ,a general description of the soils, geolo~y and agriculture use of the Ashland area: liThe City of Ashi a'nd is located on a fan terrace and footslope of, the Siskiyou r~ountains along Bear Creek in the upper Bear Creek' Valley. The average elevation of the city is about 2,000 feet. Th~ floodplain and low stream terrace of Bear Creek is north of the city and south of Interstate 5. The upper section of the city is on hills10pesat the foot of the Siskiyou Mountains where the bedrock is predominately granitic. Remnants of siltstone bedrock occur along ,the southeast side of the city. The fan terrace i's between the hills lopes and the floodplain of Bear Creek. ' Soil profiles of the hil1slopes typically have loam surface soils, and clay loam subsoils. 'Most of the soil'~rofi1es on. the fan ter., race have loam or clay surface soils and clay subsoils with a sea- sonal high water tab1e~ The low t~rrace soil profiles have silty clay loam surface soils and silty clay subsoils. Floodplain soil profiles typically have fine sandy loam surface soils and sandy loam subsoils. - .0-. . _.. .__. _. ~._ : Talent Irrigation District canals start south Qf the city near Emigrant lake and meander through the valley carrying needed irriga- t ion wa ter for crops duri ng the hot, dry summers of the- reg i on'~ Crops : consisting of pear orchards, "pasture, hay1ands and small grains are grown in the area. Precipitation is about 20 inches per year, 'in- creasing to about 25 to 35 inches in adjacent mountains to the east and' west of downtown." . .' , . In establishing an urban growth boundary for the C'ty, a major concern regarding sails is the suitability of the soils for agriculture. The Soil Conservation Service rates soils for their agricultural suitability. Appen~ix A explains the la,nd capability classification system. .. . . l' . , .. 8 As mentioned above, farms in the Ashland area are provided with water from the Talent Irrigation District. The availability of irrigation improves the suitability of most soils .for agricultural production. Based on the assumption that irrigation will continue to be available for farm use in the study area for the next 23 years, Map 2 shows the suitability of soils for agricultural use. The Statewide Planning Goals consider Class I through IV soils to be lands which should be ret~Jned for agricultural use. Prime agricultural soi 1 s abut the current Ci",~.'>1jmi ts of Ash land. on the north and eas tin the Bear Creek Valley. TL~,:very best soils (Classes I and II) occur in the Jackson Road area (just north of the current City boundary) and along Bear Creek~ Neil Creek and Tolman C~eek bottomTand: All the soils between the Ashland City limits and 1-5 on the north and east are prime agricul.tura::soi.~.': ,. To the north of 1-5 most soils are Class IV with some Class V.J an:!' VII;:-~ei'ls appearing further away from the City. In the area of Greensprings Highway, the soils are very good, especially along Neil Creek. In the steeply sloped areas to the south and west of the City, most soils are unsuitable for agricultural use (Classes VI and VII). "" - ~regate Resources: In planning for future urban growth, care must be taken to ensure that sand and gravel and quarry rock are protected from incompatible developments. Aggregate resources are required for public wor'ks and private developments associated with urban growth. r.1ajor deposits of sand and gravel oc~~r ~l:~he floodplain of Bear Creek, and smaller deposits are located in the po"int ;:~(n:"'s and channels of smaller streams in the area.' Since the latter deposits are very small and shallow, they are not consider- ed as major aggregate sources. The following comments are abstracted from an aggregate resource study prepared by the Jackson County Department of Planning and Development in 1976: The Bear Creek gravels occur at three levels; underlying colluvial f:ns, terrace gravels, and as riverwash deposits. The colluvial area lies east of the City of Ashland near the confluence of Neil and Emigrant Creeks. Gravel deposited in this area is cross-bedded under approximately 3 to 6 feet of silty loam soil. No removal of this gravel deposit has been done in the .pas t.'u:.nd future removal is n-otrecommended. The 1 and is currently in agri"tulttir.ti'i"or residential use. Adjacent to Bear Creek throughout .the p;';-:f1ntny".unit are low stream terrace gravel deposits. These are general-1y itS' narrow strips ranging from 25 to 300 feet in depth from the stream. "Gra";.'.t"\l '-'has been removed from this formation in areas near the easterly City limits of Ashland and adjacent to the stream in the Valley View area. Low stream terrace gravel deposits are generally covered with a tbin !'.oi1. overburden. Deposits are 4 feet to 10 feet in depth to bedrock... Ar.,~~.3cent r;verwash gravels occur only in substantial deposits on inside curves of the stream. Where these occur, a substan- tial deposit of low stream terrace gravels will also be found further back from the creek. ' .... . :.. ~ . '0 . :... w;'" ... .. . 9 t. Past gravel op~rations ~long the entire section of Bear Creek in the 'Ashland area have. nearly depleted: the resource. The gravel that goes into concrete products for urban uses in the Ashland area. predominately comes from sources along the Rogue River. A portion of the land area along Bear Creek i~ within the City of Ashland and planning and zonin~ 'controls are regulated by the City. Further removal from Bear Creek deposits is not recommended for the reach of the waterway south of Valley View Road. It appears that most rock or gravel needed to support urban uses in the Ashland area will come from sources located some distance from Ashland~ ...... There is no real pattern or concentration of active granite pits in the area. They are scattered completely around west and south Ashland. The most desirable place for granite pits is in the Ashland Mine Road area ~nd Tolman Creek area. . . _\ Vegetation and Wildlife: To determine the areas most suitable for urban expansion and to assess the potential environmental impact of such growth, knowledge of the vegetation and wildlife is ess=ntial. The environment is a valuable resource, although its value in some instan~es is difficult to translate into dollar figures. The aesthetic appeal of Ashland for its residents and visitors depends to a great degree on the environment ~opography vegetation, wildlife.) Air and water quality, which can also determine a city's attractiveness, are discussed in other sections of this report. The information ~resented here regarding vegetation is abstracted from Resource Conservation Data for Land Use Plannin and Communit Develo ment, Cit of Ashland (U.S".D.A. .Soi1 Conservation Service, 1975 . Ashland is located near the eastern edge of the Siskiyou ecological province of southwest Oregon and northern California. The City is in a botanically rich, ecologically complex e~Qtone (transition area) between two distinctively different ecological zones wi-thin" the Siskiyou province, the forested moun- tains and the valley floor. A variety of plant communities ranging from coniferous forest to oak and savanna and open grassland characterized the hi~toric vegetation of the Ashland area. Appendix 2 provides a general landscape profile of plant communities in the area. The great diversity of plant life in the area is illustrated by the sketch. .The wildlife in the area is also very diverse. Appendix 3 is a list of the ~arious faunal species associated with the different habitats. Wildlife, in addition to being inherently va1uabl~, is also an economic resource. The Bear" Creek Valley, part of which .is in the Ashland area, is a very -important habitat for manj species, especially game birds. . Estimates of the economic value of various species are available for the County (Gary A. Hostick, Wildlife Resources in Jackson County, Department of Fish and Wildlife, October 1976). Any reduction in the wildlife habitats decreases the income to the County from the use of the species' associated with the habitats and often reduces opportunities for County residents to enjoy nature. '. 10 An inventory of natural areas in Jackson County (Oregon Natural Areas: Jackson 'Count Data Summar , Oregon Natural Heritage Program, The Nature Conservancy, 1977 identifies three important natural. areas near Ashland. Pompadour Bluff, located to the northeast of the City, is considered as good wildlife habitat; the Perozzi Tract, on the south side of Ashland, is noted for its mixed vegetation (nladrone/douglas fir/oaks); and Grizzly Peclk, northeast of the City, is habitat for the Ashland shrew. Appendix 4 provides recommendations from the State Department of Fish and Wildlife regarding the faunal species and their habitats in the Ashland area. ThE: recommendations can be summarized as follows: Wet1ands,forested areas and agriculture lands are critical habitats which should be preserved from urban development whenever possible. Concentration of future urban development in areas which are already urbanized is one method for mitigating adverse environmental impacts. Air' Resources: Ash1and;s part of the Bear Creek Valley airshed. The topographic situation and the meteorological conditions of the valley give thE! area an extremely high potential for air stagnation and the accumulation of pollutants. Much of Ashland is located above the valley floor, and this location avoids certain air pollution problems (inversions); however, the Ci1~'s situation near the southern end of the valley allows pollution from thE! entire valley to back-up against the hills of Ashland when prevailing winds are from the northwest. . - - - Exi'sting data show the quality of air in portions of the valley to be poor whE~n evaluated in terms of standards set by the Federal Government. The Government sets general standards for six classes of pollutants: 1) suspen- ded particulates; 2) photochemical oxidants; 3) carbon monoxide; 4) sulfur oxides; 5) hydrocarbons; and 6) nitrogen dioxide. The standards set for these pollutants consider the concentration of the pollutant and the time per'iod over which the pollutant can be allowed. The Federal standards for three pollutants (suspended particulates, photochemical oxidants and carbon monoxide) are consistently violated in. the valley. Industrial processes, paved road dust, wood space heating, open burning, orc:hard heating and commercial space heating seem to account for about 50% of suspended particulates. The other 50% is from natural and unidentified sources. Significant improvements have been made in the area's particulate air' quality since' 1970. Unlike suspended particulate matter, photochemical oxidants (smog) are not emitted directly from industrial or area sources. Photochemical oxidants arE~ formed by chemical reactions in the atmosphere between reactive hydro- car'bons and oxides of nitrogen in the presence of sunlight. The hydrocarbons arE~ probably primarily emitted from motor vehicles, veneer dryers, other industrial processes and gasoline marketing. Carbon monoxide is emitted from motor vehicle exhausts. In" 1970, Congress passed several amendments to the Clean Air Act requlrlng statewide implementation plans (SIP) to be submitted to the Federal Govern- ment for approval. In DEQ's SIP of 1972 only the problem of suspended par- tic:ulates in the Medford-Ashland area was addressed. However, in 1976, EPJ~ requested revisions' to the plan for implementation by July 1977. The revisions will include control strategies to bring the Medford-Ashland area into compliance with all applicable standards. In addition, DEQ has control 11 over direct sources of air pollutants through a contaminant discharge p'ermit system. Commercial and industrial pollution sources have compliance schedules. DEQ must submit to EPA a detailed analysis of the impact on air quality of projected growth in the Medford-Ashland Air Quality r.1aintenance Area (AQ~1A). Hhere the analysis indicates that an area will not maintain the Federal standards, once attained, for the subsequent ten-year period, DEQ must also submit a plan containing measures to ensure the maintenance of tlhe standards. ~ U'rban gro\lJth will affect air qual ity. While higher- concentration of urban development can mean an increased concentration of air pollution sourtes, the total amount of air pollution generated is likely to be less than amounts which would be generated by dispersed (or sprawl) development. Motor vehicles seem to be a major source of some of the air pollution problems in the valley. .. Generally, concentration of urban development reduces the number of vehicular trips required each day and also increases the viability of public trans- portation systems. Since a large number of Ashland residents work in Medford, the bus system (which began operation in July 1977) may be able to assist in the reduction of air pollution resulting from work trips each day. Welter Resources: Water resources and water quality problems in the Ashland ar'ea are discussed in the section on "Public Facilities". H"istoric sites: A number of historic sites exist in the area around Ashland. While the occurrence of such sites has little effect on the delineation of an ul~ban growth boundary, some policies should be develqped either by the Gitv or County regarding these sites. Map 3 snows tne locatlons of tne sltes 11sted below. Historic sites inside the City are not shown on Map 3. SITE DATE CONSTRUCTED c . 1858 c. 1862 c. 1860 c . 1860 c. 1870's c. 1900 c. 1920's c. 1860 · s c. 1910's & 1920's 1 Giles Wells House 2 Patrick Dunn House 3 Golden Medal Barn 4 John P. Walker House 5 Myer/Billings Century Farm 6 Ashland Mine 7 Jackson Hot Springs 8 Farnham/Billings/Jackson Eagle Mill 9 Old Pacific Highway 10 Pompadour Bluff 11 lithia Springs 12 Pompadour Chief Spring House -. 12 The Ashland area settlement began in the early 1850's. The Wells, Dunn and Walker sites are representative of this initial wave of immigration. The Wells and Dunn farm residences are examples of the classical revival style of architecture which was at its zenith from the early 1840's to.around 1862. The Walker house is a fine example of the Ita1ianate style. This is an early example since this style of design in this area was not in vogue until the late 1870's through the 1880's. Captain John Walker served ;n the cavalry during the Rogue Indian Wars. The Golden Medal Barn is an example of the large hewn frame construction system. Few of this size remain. The barn was featured in an early 20th Century adver- tisement. The farm layout of the Myer/Billings Century Farm is still intact. ~ The farm, which provides a distinctive open space amenity at the entrance to the City of Ashland, may have potential for development as an historical farm .. park which could be linked with other recreation developments in the Bear Creek Greenway. _ From the 1880's to the 1920's, Ashland's development of mineral spas and resorts was a major part of the economic and social growth of the community. Jackson Hot Springs, Lithia Springs and the Pompadour Chief Spring House are valuable for recreation, possibly for use as historical interpretation parks. Sections of the Old Pacific Highway, west of Jackson Hot Springs and along the current Jackson Road, are highly scenic and may have potential as bike ways or trails. The old highway followed the earlier Oregon-California Trail used in the 1850's. Eagle Mill is one of the two remaining buildings in the valley associated with early gristmills. C) Land Use and Transportation: Land Use: The delineation of an urban growth bGundary requires consideration of current land uses and transportation patterns inside the city and in the urban fringe area. Vacant land inside the city will be able to accommodate som~ of the community's anticipated growth. As of January 1978, the City limits of Ashland encompassed 3,791 acres - (See Section V.A.6. "Land Required" of this report for information regarding vacant land within the City which can be developed to a,ccQmodate residential growth. Section V.A also provides information about residootial building trends in the City.) In Ashland, commercial development is concentrated in the downtown core, along Siskiyou Boulevard and, to some extent, along Ashland Street. Industrial uses occur near the railroad tracks, primarily at the southeastern edge of the community. A large user of land in Ashland is Southern Oregon State College. "Since 1970, residential development has occurred primarily in the south hills of Ashland and north and east of Southern Oregon State College. Most single family residential development has occurr'ed in new subdivisions located southeast of the downtown with but one exception being the Quiet Village Subdivision located in northwest Ashland. Most of the multiple family development has been constructed directly below the College, along, 'lincoln, Garfield, and California Streets and along Siskiyou Boulevard, southeast of the campus." (Source: Ashland Draft Comprehensive Plan) 13 A land use survey was completed during the spring of 1977 for the areas around Ashland's City limits. The land uses in the fringe areas of Ashland, as shown' ~n Map 3, ~re a sunmarized version of the detailed survey that was conducted. Most of the area adjacent to the City on the south and west is forested. Some sparse settlement does occur in the area west of the City and south of the railroad tracks. " A variety of uses stretch along High\'/ay 99 northwest of Ashland. Commercial uses (such as a tire store, animal hospital, auto service shops, etc.) occur' along with mobile home parks and separate residerices. Near the 1-5 and Valley View Road interchange, occur conm~rcial uses (service stations), a public facility (Motor Vehicles Office), light industrial uses (trucking company), agricultural uses and residential uses. Further north of the interchange exists a mixture of residential and agricul- tural land uses. To the north of Ashland, between the City limits and 1-5, the land uses are farms and scattered residences. The Ashland sewage treatment plant and a meat packing plant are also located in this area. A mobile home park, scattered residences and farms occur northeast of 1-5 around Mountain Avenue and Nevada Street. In the area along East Main Str~et, between the City and 1-5, the fertile Bear Creek bottomland is used for pasture and crops. Residential uses are focused along the major streets in the area and three spots of commercial uses (antique and rock shops) also dot the area. The Oak Knoll Subdivision and the City-owned golf course, which occur to the' east of 1-5, have been annexed by the City. . The City airport, agricul- tural uses and large-lot residential uses also occur in the area. Further south the land uses include a mobile home subdivision, large-lot residential develop- ments and commercial development (a tavern and a campground). Sout~ o~ Ashland and west of 1-5 are located a mobile home park, a mill, an auto service shop, a gravel pit, and residential developments. Most of the residences ar~ situate4 on large lots. . To summarize, development in the fringe area occurs mostly to the southeast of Ashland, in the area of East Main Street and to the northwest. (Some of the strips and spots of development are not suitable, due to their location in relation to agricultural land and rural areas, for inclusion in the urban growth boundary.) Agricultural and forestry uses also surround much of the City and help define it. . Transportation: Energy shortages and air pollution problems emphasize the need for iimproved transportation and urban planning. The City of Ashland has, in the City comprehensive plan, discussed ~ome measures which could be implemented to solve existJng transportation problems and to accomodate future traffic requiremen Many Ashland residents rely exclusively on the automobile for commuting to work and for social, recreational, shopping, etc. trips. Other forms of trans- portation which might become more important in the future are rail and bus trans- portation, bicycling and walking. Air facilities are important for transporting business personnel and tourists into the Ashland area. A re9ional bus system, which serves Ashland, is operated by the Rogue Valley Transportation District. The primary routes are along the City's arterial and collector streets. The weekday service of the system has potential for transporting the many Ashland residents who work in other valley cities to their jobs. - ~ , i i .! . The potential for using rail transportation for commuting has not, to the writer's knowl edge t been fully explored. . The economi c vi a bi 1 i ty of commuter rail service may depqnd on a larger population than will exist in, the valley by the year 2000. . 14 Ashland's comprehensive plan recognizes that bicycling can be an effective means of transportation if bike routes are designed to provide direct and safe access to activity centers. In Ashland, however, no circular or through bicycle system exists currently. Walking, as a transportation alternative, is most effective in high density areas where short trips are possible. The City's plan encourages the development of bicycle and pedestrian paths. Also, the Bear Creek Greenway is proposed to extend from Emigrant Lake to the mouth of Bear Creek at the Rogue River. Open space along Ashland Creek 'would connect to the Greenway. The following section, abstracted from the Ashland Comprehensive Plan, descri bes the Ci ty IS street sys tern and, improvements whi ch the Ci ty fee 1 s may be needed (see Map 4): laThe physical appearance of the City of Ashland has been substantially influenced by the layout of streets. Many streets were constructed to follow existing contours, but other streets were designed for flow in a north-south direction usually disregarding topographical and existing natural features. :. - - Several existing streets are now either too wide or too narrow for present traffic flows. Some streets do not intersect at right angles, some are too st~ep, and some are unimproved. Hillside streets create continual maintenance problems not only for the City but for neighborhood residents. North Main Street, Siskiyou Bou.levard, Mountain Avenue and Walker Avenue are' heavily traveled streets adjacent to: schools, thu.s representing a safety problem for students and motorists alike. Other safety and traffic flow problems exist in commercial areas served by arterial streets when frequent turning is permitted into a linear business development. In residential areas, the infilling 9f vacant land along with the expansion of the City will necessitate additional streets in order to accommodate tralffic generated by present and future development. There are several areas in Ashland that will require collector or arterial streets: The Str'awberry Lane area, the Ashland Mine Road a'rea, the Quiet Village area, and the East Main Street area. Some of the proposed streets will help allev-iate the- traffic congestion on the intracity highways. $,is,kiyo.u, Boulevard,. for example, has experienced a steady increase in average daily traffic flow and the trend is expected to continue. II According to the State Highway Divison, average daily two-way traffic volumes on Siskiyou Boulevard (.01 mile south of Beach Street) have increased from about 13,000 in 1965 to 19,000 in 1977. Ashland's plan recommends the consideration of the extension of the following streets: 1) Westwood Street south to Strawberry Lane. 2) Grandview Drive west to Ashland Mine Road. 3} Nevada Street west to Jackson Road. 4) An arterial parallel to S.P.R.R. tracks from Mountain Avenue to Nanna 1 ^venue. 5) Eagle Mill Road cast to Mountain Avenue. 15 The County has responsibility for maintenance and improvement in the City of a number of roads. . ~ The Ashland Airport is City-owned, but is located outside the City in an area which could be within an urban growth boundary. In 1976, a plan was prepared for the,faci1ity (Ashland Municipal Airport Master Plan 1975-1995, Wadell Engineering Corporation). The data in this section is abstracted from that report. Currently, the airport serves the needs of small aircraft. In 1975, there were 41 aircraft based there, and 78 are expected by 1995. The airport is comprised of 67 acres of land and 10 acres of easement. The airfield has a 50' X 3400' runway and partial parallel taxiway. In the ter~ina1 area, there are 36 paved parking positions. The report states that, due to the proximity of the Medford . Airport with its frequent and convenient air carrier schedules, it is not anti- cipated that Ashland will have scheduled air carrier service during the airport planning period (1975-1995). The airport plan assumed a 1995 population of 21,700 for the.City of Ashland. Authors of the report recommended expansion of the runway and terminal building, the cu1verting of Bear Creek in the area, and several other improvements to accommodate safe future air traffic. No plans are being made to accommodate business jets, and no air traffic control tower will be required during the planning period. While the land uses existing in the vicinity of the airport are considered to be compatible with the airport, the noise contours for the facility will expand as air traffic increases. This might become a problem if the area becomes more urbanized. Indeed, the airport plan recommends protection of the agricultural and rural residential characteristic of surrounding lands. In terms of services to the facility, the report considered the capacity of most services to be adequate to meet future needs. The report did suggest that any expans i on of the Ci ty of Ash) and's sewer .system in the airport vicinity should ~nclude connection of the airport. D) City and County Comprehensive Plans and Zoning: Ashland Comprehensive Plan: Map 5 is a general sketch of the City's Compre- hensive Plan as of the spring of 1978. The major relevance of the plan for the urban growth boundary issue is the uses which are proposed for the land between the current City limits and the urban growth boundary line, and the ways the proposed land uses in that area relate to plan designations for land currently inside the City. Ashland's Comprehensive Plan shows most intensive urban developments concen- trated along Highway 99, in the downtown Ashland and railroad area, along . Siskiyou Boulevard, and along Highway 66 to the airport. For the urbanizab1e area, as proposed by the City, the Plan designations would be as follows: 1) To the north\'es t of the current Ci ty 1 imi ts in the Ashland r~i ne - Road area, rural and suburban residential uses are planned. The suburban residen- tial area includes the northern and western portions of the urbanizab1e area. The western portion of the area is designated for rural residential uses. Linear open space areas separate the rural and suburban residential areas. . 16 2) In the area north of the City, near the sewage treatment plant, a small area of suburban residential use'is planned (adjacent to the City just north of Nevada Street). Open space and public facility use (the treatment plant) are planned for, the remainder of the area. 3) An urban low density residential area occurs north of the City limits along Tolman Creek Road. The rest of the area around East Main is desig- nated for suburban residential uses with bands of open space running through it. Some land is also designated for future use by SOSC. 4) Suburban residential is the designation for the area bounded by the freeway on the west and East Main ( or Highway 66) on the north. An area designated for highway commercial exists at the freeway interchange. Rural residential is the designation for the areas around the airport and along Highway 66 and Crowson Road. Two pockets of suburban residential occur adjacent to the Oak Knoll Subdivision and golf course. 5) The area, bounded by Siskiyou Boulevard, the railroad tracks, and the freeway and Crowson Road is designated for light industrial use. South of Crowson Road the designation is Rural Residential. 6) The small areas in the urbanizable area on the south side of the city, along Upper Tolman Creek Road, near Mary Jane Avenue, and near Walker Avenue; ~re primarily desjgnated for suburban residential use, with a small strip in the area near Walker Avenue. - - In Section VI of this report is a chart showing the total acreage in each Comprehensive Plan designation inside the City and in the urban- izable area. Jackson County Comprehensive Plan: The Jackson County Comprehensive Plan employs a wide range of Plan designations ranging from open space reserve to urban medium desity for the Ashland fringe area. The Pl~n designation of forest resource is given to lands where sustained timber production is considered the most important use. In some of the forest resource area around Ashland, however, erosion problems have prevented logging. Open space reserve and open space development lands have physical problems which limit intensive development. The development problems on open space development lands are not usually as severe as those in open space reserve areas. Suburban residential areas have moderate limitations on the operation of sub- surfacE~ sewage di spasaJ systems. The. r~a] res.Jdentj aJ Pl an category encourages homesite development in an agricultural or rura-l env+ronment with the objective of minimizing conflicts between agricultural and residential uses. The agri- culturE~, interchange commercial, gefieral commercia.l and industrial Plan designa- tions are self-explanatory. As shown on r~ap 6, an area to the southwest of the City of Ashland is designated as open space reserve due to the topography and soil conditions in the area. Adjacent to the western City limits occurs the rural residential designation with open space reserve further out. Along Highway 99 to the northwest of Ashland occurs general commercial and, further northwest, open space develop- ment and open spa.ce reserve. Some land immediately northwest of the City and on the northeast side of Highway 99 are designated as agricultural. On the southern side of the 1-5 and Valley View Road interchange, lands have. the inter- change commercial Plan designation. Rural residential districts occur around the interchange commercial areas and the interchange. - '17 Agricultural and open~pace developlnent designations exiit for parcels north- 'east of'the freeway. Between the City and 1-5, the designations are rural residential eastward from the City to Bear 'Creek, and agricultural between the Cre~k and the freeway. On the northeast and southwest corners of the southern interchange, occurs the interchange co~nercial Plan designation. At the intersection of Dead Indian Road and Highway 66 occurs a general commer- cial district. To the south are rural residenti,al and agricu'ltural Plan designa- tions. South of Ashland, there are areas of rural residential, a pocket of suburban residential, open space areas, and a very large forest resource area. ~ ~Zonin9: The Zoning Map of the City of Ashland shows Residential Farm (RF) zones in the steeply sloped southeast corner of the City, on the south side and ;n the northwest corner along North Mountain Road. Single family zones occur in a wide band on the south and east portions of the City, some- what parallel to Main Street and Siskiyou Boulevard. Commercial zones occur at several points along Main and Siskiyou. Some commercial districts also exist adjacent to the railroad tracks on the south side. Another commercially zoned area occurs along Ashland Street and Highway 66, and extends across the freeway. Multiple family residential zones are concentrated along Main and Siskiyou and some occur along Ashland Street. The City's land zon~d for industrial use is located along the railroad line in the east central and western sections of the City. " . - .18 - County Zoning: A variety of zoning designations occur on the fringes of Ashland, as shown on Map 7. To the west of the City occurs a large block of Open Space Reserve (OSR-20), with a 20-acre mi~imum"p~rcel size. Also~ immediately adjacent or close to the\'/estern Clty llm)ts are Rural Reslden- tial-5 (RR-5) Districts with a five acre minimum parcel size, and a small Exclusive Farm (EF) Zone. Further. to the west o~cur Open Space Development (OSO-5) with a five acre minimum and Open Space Reserve (QSR-20) Zones. "Along Highway 99 to the northwest of Ashland, occur Exclusive Fa~m (EF), Farm Residential (F-5) with a five acre minimum, General Commerclal (GC), and Open Space Development (OSD-5) Zones., The Open Space Development (050-5) occurs in an area of steep slopes and the Exclusive Farm (EF) Zones extend to a large block northeast of 1-5. Interchange Commercial (IC) zones occur near the Valley View Road and 1-5 interchange. Around the Interchange Commer- cial (IC) Zones, exist Rural Residential-5 (RR-5) Districts. Between the northern City limits and 1-5 lie Open Space Development (OSD-5), Rural Residential-5 (RR-5) and Exclusive Farm (EF) Zones. To the northeast of the City is a block of Farm Residential (F-5) which is surrounded on the County sides by a very large Exclusive Farm (EF) area. Generally, Rural Residential-5 (RR-5) parcels occur between the Southern Pacific Railroad tracks and the Exclusive Farm (EF) Zones. - - .. ..-. ..~ - . Around the southern 1-5 interchange, exists Rural Residential-5 (RR-5) between Ashland and the freeway, and Interchange Commercial (IC) 'between the freeway and the Rural Residential-5 (RR-5)Zone in the northeast quadrant of the' interchange. The Airport Approach Overlay (AA) Zone occurs to the east of intersection of Highway 66 (East Main) and Dead Indian Road is zoned General Commercial (GC). Eastward from the airport zone are txclusive Farm (EF), Open Space Development (050-5), Rural Residential-5 (RR-5) and Farm Residential (F-5) Districts. Southeast of Crowson Road occur Farm Residential (F-5) and Exclusive Farm (EF) Zones. In the area south of Ashland along Tolman Creek Road, the zoning is Rural Residential-5 (RR-5), and Exclusive Farm (EF) occur~ between the Tolman Creek Road area and the freeway. An Open Space Development (050-5) Zone surrounds much of the Rural Residental-5 (RR-5) District. On the south central fringes of the City occur Rural Residential-5 (RR-5) Rural Residential-2.5 (RR-2.5) and Open Space Development (050-5) Zones. ' South of these is a very large Forest Resource (FR) Zone which covers the steeply sloped Ashland Creek watershed. . E) Public Facilities: Water Supply and Service: In 1977, a water resources management plan was pre- pared for the City of Ashland by James M. Montgomery, Conslflting Engineers, Inc. The basic data in this section is derived from that report. ; , ". - 19 · , The City of Ash1and's water requirements are met with treated water from Ashland Creek and untreated water from Talent Irrigation District (TID). .The average gross arinua1 consumption rate of treated water is estimated to be 270 gallons per capi ta per day, and ranged between 250 gpcd and 300 gpcd. \~ater demand fluctuates greatly. during the year. In summer, the" demand is high and stream f1 0\'/ ~i s geneTa 11 y very low. The consultants prepared projections of treated water requirements for the year 2000. A projected population of 23,300 was used. The projected water requirements (excluding TID) for the year 2000 are: - Average Day (mgd) Maximum Day (mgd) Maximum Month (MG} Annual (MG) Annual (AF) 6.3 12.8 326.0 2,295.0 7,040.0 .- While the Ashland Creek watershed produces a large amount of water, shortages result since the City's storage facility (Reeder Reservoir) is 'not large enough to store enough water during spring runoff to meet the City's requi're- ments in the late fall of hot, dry years. Figure 1 shows the water shortages which coul~ occur in 1999 and 2000. The stora!~e capacity required in those years far exceeds Reeder Reservoir's capac"ity. The requirements could be met by the provision of additional storage in Ashland Creek and the importation of supplemental water from outside fhe watershed, such as TID. The water resources management plan recommended that the City construct a ::1 ,~OO AF impoundment in Ashland Creek and that Ashland acquire an additional . 500 AF from TID. Increased use of TIO water ~ould require construction of ft pump station and supply line to the City water treatment plant. These measures would satisfy City storage requirements through the year 2000. (In 1977 the Ci tv took act; on to increase .usaop. of TIn wat~H~). Another consideration in water resource management in the Ashland area is the characteristic of the watershed. The Ashland Creek watershed is, in most areas, heavily forested and steeply sloped. The granitic soils in the watershed are extremely susceptible to weathering and slope erosion. After the watershed was opened to multiple use management in 1955, access roads were constructed and the Mt. Ashland ski resort was developed. Logging also occurred from 1958 to 1965. Such uses of the watershed increased erosion prob11ems which resu1t.ed in greatly increased amounts of sediment being deposited i~ Reeder Reservoir. It is estimated that prior to 1955, annual sediment cleaning of the reservoir resulted in less than 4,000 cubic yards of sediment being flushed into Ashland Creek. " Major storms in 1964 and 1974 resulted in very large amounts of sediment in the. reservoir, approximately 60,000 and 120,000 cubic yards respectively. J- ~ 11 ... w cr ~ 10 o Z q: (/) ~ 9 o :c J-' o Z 8 <: :; LtI o rc 7 o )-" ..J CL 0- .~ 6 CI) 111 > ~ 5 ..J ~ ~ ~ o 4 FIGURE "1" 15 199.9 -r 2000---~ 14 I.- I -- -- ---- ---h -- , I 1- - -lL ~r ~ y --- i--- -- -, ..- ---- --- ~/-1.-- tj ~:(=rC~;j7 ;- "'-- --..- 'J I Demand -- - . r/ '"'"" , / 11 vi J /N * _ _/+ }-1l1,-SUPP'Y SPiIIT!tv~ · 4 . Dc~and R; -lI7--~ /J;[ I 'I J . tift / I 1 .~ . I r---- Suppl,. I .. ' I' . "0 j/ ~ I 1 I > .. ~ &') !----1400 Acre~ Fect C> a: ~~ ,/ / / , , 1 If -- IJ ----4 - 13 12' . .. 3 2 o M J J A SON D J F M A,M J J AS 0 N D J C^L~ND^R MONTHS CITY OF ASlILANO AS/lLANO- CREE/( STO/?/4GE RE()U/,7EAIENTS (PI.A^"l/IIG VEARS /999-2000) From:' Water Resources Mana~:cnt Pl an and Fac; 1; ty Study t James ~1. t~ontgomery, Consulting Engineers, Inc. 1977 - 20 - The sediment decreases the reservoir's storage capacity and has to be dredged or flushed away "into Ash1und Creek. The flushing greatly impairs the quality of water downstream from the' reservoir (Ashland Creek, Bear Creek, and the- Rogue River). . . - , To lessen problems in the \'/atershed, the watershed management plan recommended, ' among other things, no further road construction in "the area (except by mutual consent of the City and the Forest Service), minimum maintenance of existing roads (to all 0\'/ some revegeta t ion), and the phas i ng-out of roads whi ch are not needed. Recreational use of the watershed should also be tightly regulated, and logging should not be allowed until assurances can be given that such activity will not further in,crease sediment accumulation in Reeder Reservoir and will not cause other negative impacts. The consultants also offered recommendations for improved operation and dredging of Reeder Reservoir. .- Sewer System: Proposed revisions to Ashland's comprehensive plan provide a clear synopsis of data regarding the current sewer system and, thus, the material here is a quote: liThe Ashland sewer system contains approximately 383,750 feet of concrete and clay pipe of which the majority is 6-inch diameter. The largest size is l8-inch. Sewers were first constructed in the City in 1906 and until 1941, they were generally clay. After 1941, concrete pipe was used. There are no combined storm water and sanitary sewers in the City system... The system serves approximately 3,200 of the 3,800 acres within the present City boundary. Service- to an additional 500 acres in the Oak Knoll* and other areas outside the present City limits is also available, though not all are served at present. Because of the generally steep slopes and rela- tively minor infiltration, the system has capacity for additional flm" from areas that are yet to be developed. New development is predominately on the southeastern side of the City. It can be assumed that the bulk of additional sewage flow in the near future will be generated from this area. As more southeastern area sewers are con- structed, the increased flow will begin to tax the capacity of the mains in SiskiYQu Boulevard, Wightman Street, and t~rton Street. These sewers are th1e main conduits transporting sewage to the collecting trunks; i.e., Be,ar Creek Trunk, Ashland Creek Trunk, "A" Street Trunk, etc. located on the northern side of town. The trunks, in turn, convey the sewage to the tr,eatment pI ant-. The recently remodeled sewer treatment plant should accommodate additional population growth beyond the year 2000. The design capacity of the plant is 3.1 mgd or a population equivalent of 40,600, which still leaves an adequate margin for industrial use. Presently, the plant's average daily flow is 1.4 mgd. "" f4ap 8 shows the City of Ashland sewer main network, the location of the City.s sewage treatment plant, and the Bear Creek Valley Sanitary Authority (BCVSA) service district. *The Oak Knoll area has been annexed to the City. - 21 - In somE~ months of the year, Ashland and Bear Creeks are'incapab1e of adequately absorbing effluent which will be released from the Ashland sewage treatment plant in the year 2000. The existing system provides s"econdary treat- ment. The Department of Environmental Quality has set standards indicating that Bear C'~eek should have a 10 to 1 dilution capacity for receiving effluent if downstream water is to be used for various purposes (not including drinking ). Since the City of Ashland has received a permit to discharge effluent into Bear C'~eek, it is assumed that DEQ has given the City an exception. Recent monito)~ing shows Bear Creek as having only a 3 to 1 dilution capacity and in the late summer when the Creek is very low, the capacity could fall even fur- ther (source: Discussion with DEQ July 1977). Not only can such water quality problems impact wildlife and vegetation down- stream, but the City of Talent will be using water from a point at the con- fluence of Wagner Creek and Bear Creek as its domestic w.ater supply. Anothel~ matter to be considered regarding the sewerage system for the City of Ashland. is the degree to which such service can be provided to developments " within the proposed urban growth boundary. Some area to the northwest of the City is within the servicing district of " the Bear Creek Valley Sanitary Authority (BCVSA). Any developments in that area would be costly to serve by the Ashland sewage treatment plant since pumpin~~ stations would have to be constructed to pump sewage to the plant. Although BCVSA has no sewage mains in the area at present, there is an interest b.y some residents to secure such services. ~ . - . Schools: The follo\'ling data is abstracted from the City of Ashland Comprehensive Plan: "As in other communities, education programs and the general educational level are valuable resources in Ashland. Educational facilities such as playgrounds, gymnasiums, and meeting rooms are important to the schools, but can be an asset to the whole community after school hours. Converse'y, thE~ City of Ashland has some resources which are useful to the school district. Southern Oregon State College, with its special offerings and opportunities, is a very imJ.;.1rtant asset, as students and faculty contri- bute their efforts to solvil',g Ashland problems. ThE~ number of chi 1 dren in the Ashland, Schoo 1 Sys tern has not changed much despi te increases in genera 1 popul ation'. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . thE~ heavy in-migration of retiring people may account for this trend. Sept. General Elementary Junior Senior Total -- Population High High 19j'0 12,342 1,326 778 753 2,857 19i'1 13,487 1 ,341 738 797 2,876 19j'2 13,980 1,375 740 776 2,891 19ir-3 14,406 1 ,319 740 794 2,853 19i'4 14,500 *1 ,501 7.43 745 2,989 19i'5 14,400 1 , 543 776 735 3,054 19i'6 14,500 1,589 748 757 3,094 *The increased enrollment in the elementary schools is d~e mostly to " the addi t ion of the kindergarten program. . - 22 - The location of the student population is shifting towards the areas of ne\'Ier construction southeast and northwest of the City center. One result of .this shift in student population is that the capacity of the schools indicated in these areas is decreasing. Bellvie\'/ vlnd Helman Schools are already at a critical capacity level. II The c:ity plan evaluated the ability of existing school sites, shown on Map 9, to ac:comodate additional enrollment by examining State and local standards for such facilities. The authors found that expansion and possible acquisition of sever'al school sites will be needed to accomodate growth. The plan states: tI.. In the immediate future for example, Bellview and Helman elementary schools will need to add more classrooms or significantly change district boundaries in order to accommodate anticipated enrollment. In new areas of development, existing schools will not be able to absorb a~ditiona1 students. Briscoe and Lincoln elementary schools for example- a. re a 1 ready bel 0\'1 the recommended site s tanda rds . Thus, in order to alccommoda te even a modest increase ; n students over the next 23 years, €!xpansion of existing facilities and/or acquisition of new school sites (especially elementary school sites) in the urbanizable area may be necessary. F) Economic Factors Ashland's Economic Base: A study conducted in 1972 (City of Ashland 'Cbst- Revenue Study 1972, Regional Development Center, Southern Oregon State College) found that the four basic economic activities in Ashland are: . 11 ) Retail export trade ') ) Higher education (SaSC) ~- :n r.1anufacturi ng 4) Tourism A lar"ge number of Ashland residents work in Medford and White City, and many of their paychecks are spent in Medford. Ashland is a sub-regional economic center. Specialized shops and services cater to the college population and to ttJurists. The cost-revenue study found that the college is by far the largest contribu- tor to local City revenue, followed by tourism, manufacturing and retail expor"t. Economi c growth of the Ci ty can bri ng problems as we 11 as opportun i- ties to residents. The cost-revenue study determined that most forms of growth will have little effect on the average cost of City services to Ashland resi- dents. Increased tourist-related employment could, however, increase public demand for additional parks and recreation expenditure. Road congestion is likely to be a factor associated with growth in the college and tourism sectors. Capital expenditures from the general revenue might be required to alleviate congestion ,problems. The Ashland Comprehpnsive Plan states~ .23, "Economic arid population growth will most certainly result in ever increas- ing pressure to convert farm land~ in the Ashland area into residential arleas. Presently, these farmlands are valued to approximately $3 million, but about $2 million has been exempted from the higher use property tax and results in tax losses of about $55,000 annually. While the City might benefit from the increase in true cash value of the land and from residen- tial development, the loss of open space and costs of providing water, Se1r1er, street, school, police and fire protection would, in fact, neg'ate sw:h a benefi t. II [conom'ic Impact of the Urban Growth Boundary: The location of the adopted urban growth boundary will have some long-range impacts on both sides of the line. Since the function of the boundary is to center future urban growth around exis- ting u'rban centers (cities), the boundary's economic impact will relate to the potential development value of la-ode As lands inside the growth boundary become -. more dleveloped over the next 23 yea.ns. and v.acaflt. dgvelopable lands inside the boundary become more scarce, the market wilT react to this increase in demand through higher property values. This increased demand for land which can be developed to urban densities is expected in the Ashland area. - ~ Generally, the owner of a large parcel of land is able to maximize his profit on the land if the property can be sold for urban uses (urban density residen- tial, commercial or industrial developments). From this perspective, lands which have some potential for urban use (areas inside the urban growth boundary) will increase in value. The establishment of an urban growth boundary does not implY1 however that land outsidte the urban growth boundary (rural lands) will be prohlbited from develop- ment. On the contrary, some development of rural lands will continue, but thle development will occur only at rural densities. Due to the amenities offened in the Ashland area, the demand for rural housing is likely to remain hi gh in areas outs i de the urban growth boundary. In summa ry, the value of rura 1 properties can be expected to increase but at a slower pace than the value of urbanizable properties. Little concrete data exists to determine exactly what will happen to land values once an urban growth boundary is adopted. A study prepared in 1972 for the Salem area (C. Russell Beaton, Costs of Urban Growth for the Salem, Oregon Area) assessled the effect the adopt i on of an urban growth bounda ry ( UGB) had on 1 and values there. The report says: "In summary, there are five R;eJ:~gs_ of' d~.ta.. whi.~h le,ad to a particular con- clusion: (1) Although we are seeing some increase in selling prices inside the . UGB, most of the 'activity' refers to asking prices. (2) Although there are some complaints about restriction of alterna- tives outside the UGB, and some depressed asking prices, few sales are now taking place immediately outside the UGB. (3) As we continue moving out away from the UGB, either farming or partially-served low density developments were and remain the expec- tation. - 24 (4) According to Health Department observations, 'non-se\'/ered activity may be becoming even more dispersed throughout county areas. This could actually result in slightly higher land prices outside, but not immediately adjacent to, the UGB. (5) Building permit issuance outside as compared to inside the City of Salem shows evidence of increasing dramatically in the last few months. Putting this all together, it can be concluded that the proposed UGB has temporarily reduced land sale activity near the UGB, both inside and out- side. Developers are waiting before they pay increased asking prices, except in isolated circumstances, inside the UGB; and owners are waiting rather than accept lower, or at least stagnant, prfces just outside the UGB." ~n November, 1977, another study of the Salem Urban Growth Boundary was completed.. The introduction to. the'study (C. Russell Beaton, The Salem Area Urban Growth Boundar: Evaluation of Economic 1m act and Polic Recommenda ti ons for the Future , s ta tes : . II... The fundamenta 1 app~oach i~ to ex~mine the economic consequences of the boundary in terms of ltS estlmated lmpact on the value of developed land which is zoned for residential use. The boundary would be expected to raise the value of such land inside the .boundary relative to the value of similar land located out~ide.the boundary. A variety of different data sources and statistical estlmatlon P~oc~dures.wer~ utilized in this investigation. The primary r(~sult ~f thlS lnvestlgatlon, supported consistently by all statistical t~~sts, i 5 th~ e~t~:mate ~hat ~he Sa 1 em Area Urban GrO\~th Boundary as such . h~s had no slgnlflcant lmpact to date on Jand prices in the area. . . . A.!I though the urban growth boundary i tse 1 f does not a~ppear to have affected ~and prices in Salem to date, it is clear that land and housing pric~s ln the Salem area have risen significantly during the past several years..." Costs of Growth: The growth of a city brings benefits and problems to resi- dents of the city and outlying areas. The proposed revisions to the Ashland Comprehensive Plan discusses some of the gene1~al benefits and costs. The benefits include: . 1) More choices in places to live, both by place and by type of structure. 2) More cultural opportunities. 3) t~ore alternative sources, of employment. 4) More educational opportunities. 5) More special education programs. 6) Better qualified public employees (a better tax base enables the city to compete for better public servants). 7) Greater availability of professional services, variety of specialized shops, incentive for the operation of a good public transportation system, choices for entertainment and dining out, excitement and vitality. . 25 Urban 9rowth can also bring negative consequences such as: 1) Traffic congestion. 2) loss of sense of community and identity with the community and a loss of physical ties (historic buildings, neighborhood, etc.) to the past. 3) Overcrowded parks and recreation areas. 4) Proliferation of governmental boards and agencies which increases the costs of government, makes it more difficult to maintain a unified sense of direction and diminishes the capacity of government to be responsive to its citizens. 5) Deterioration of air qual ity (every household burning fuel, every niotor- -. ist dri vi ng an automobile, and every i ndustri a 1 use makes demands on 1 imi ted "0 ai'r resources). _ 6) Disappearance of large open spaces, agricultural land, and some types of wildlife. 7) An increase in the level of irritability when population growth results in mo're time spent in friction with one another in competition for space or se'rvi ces . The fo'll owi ng quote from the As h 1 and Comprehens i ve Pl an d'j scusses: 1) some of the phys i ca 1 factor''S whi ch may 1 imi t the Ci ty IS growth, and 2} the considerations regarding rate of growth. tiThe most important element to be preserved is the quality of the living environment, not any certain city size. It is agreed that the size and gr()wth rate will continue to have an effect on the type of living environ- ment. . It is sometimes possible to estimate the cfrrying capacity of a city, or i~s best eventual size, considering as many factors as possible. Follow- ing are some of the factors that could affect the eventual size of Ashland: .1. The existing water system is now adequate for 14,400 people in a ~ normal water year, but additional wat~r from the Talent Irrigation systems could provide for a total population of approximately 21 ,000. 2. The Rogue Valley has a high propensity for air pollution, now being above federal standards for both particulates and oxidants. 3. The City could provide for an additional 12,000 population if all vacant land were to be developed to the maximum in the present City limits. Not only the size of a city,but the rate of growth, can affect the quality of life. A high rate of growth can make planning difficult and make part of the economy dependent on continued high growth rates. It is felt by thE~ citizens involved in the planning process in Ashland that a steady slow growth rate is better than one which escalates rapidly. Of course, the placement and sequence of growth are also important, both of which can be partially controlled by encouraging grO\'/th in. some areas before others. 26 An actual no-growth situation allows more options for the future and tends to better protect environnlental quality but also creates little stimulation and less economic development. Resisting gro\o,Jth pressures \o,Jith specific policies requires quality planning and a legal staff. Growth control can easily result in djscrimination against lower-income people attempting to s,ett,le in the community. Ashland now has a number of regulations \o,Jhich affect population gro\~th indirectly, but their overall effect has not been dletermi ned . " The Ash.1and Comprehensive Plan also attempts to provide some data about the costs of growth as reflected in the increased need for public services. .. "The permanence and stability of urban areas are greatly affected by the quality and extent of public services, improvements and conveniences. Usually a full range of services is eventually required for an area even if the need is not immediately pressing. T1"aditional public services are water, sewer, police, fire, and electricity, but also may include street lighting and cable television. The cost of services has been increasing at a rate equal to or higher than general inflation figures. Costs are especially evident when continued growth requires new capital expenditures, such as enlarging the sewer treatment plant... One method of keeping costs down is to have compact, centered development, reducing the extent of facilities and travel. Where services are available, but no development occurs (as in vacant lots), a public investment is being under-utilized. Another way to lower costs is to have all services provided simultaneously, with close coordination between the agencies and departments providing those services. One method of reducing costs for current City residents is to have new developments pay for the extension and provision of their services." '- A studv of the me:,;t prevalent form of residential development in fringe areas (havin9 75~~ of dVlelling units as conven'tional single family homes and 25% as clustered single family units) by Real Estate Research Corporation describes the allocations of costs of residential growth as follows: CAPITAl CQ&IS~ Cost Category % Borne By I]overnment Residential (stfucture, etc.) Open Space/Recreation Schools Police, Fire, Govt. Regulation, Library Hospital, Church Solid Waste COllection/Disposal Stteets/Roads Utilities land o 80 90 100 o 30 60 40 20 % Borne By Private Property 100 20 10 o 100 70 40 60 80 . ~.. _.- -.. . ~ 27 . _._~._. ...-....._~... .~- . OPERATING COSTS (FOR FIRST 10 YEARS) Cost Category Open Space/Recreation Schools Pol'ice, Fire, ~ovt. Regulation, Library Hospital, Church Solid Waste Collection/Disposal Str.~ets/Roads Ut i :1 it i es % Borne By Ciovernment 80 90 100 o 30 100 10 % Borne By Private Property 20 10' o 100 70 o 90 "0 '"- - Source: The Costs of Sprawl, Real Estate Research Corporation, April 1974, Table 90, p. 203. .. While the costs of residential growth in Ashland might be allocated a little differently, the table above indicates that government (taxpayers) pay a large share of the capital and operating costs associated with residential growth. ~ LAND REQUIRED FOR THE ASHLAND URBAN GROWTH BOUNDARY The Ash"land Planning Staff has calculated the land requirements to accomodate City growth to the year 2000 as shown below: A) Population and Residential Land 1) Population Projections: The current population of Ashland is 15,123, and the estimate for the year 2000 is 21,000. (See Section IV.A of this report for documentation.) 2) RatiJ of Single-family to multiple-family dwelling units: From 196~1 to 1977, building activity was almost equally divided between single and multiple units: YEA,R SINGLE-FAMILY MULTIPLE-FAMILY TOTAL ., 1965 1\T8 74 192 1966 68 60 128 1967 49 40 89 1968 39 ,64 103 1969 44 18 62 1970 34 72 106 1971 69 145 214 1972 75 363 438 1973 76 18 94 1974 51- 16 67 1975 73 30 103 1976 113 10 123 1977 110 ' 49 159 TOTAL 919 959 1878 % 48.9 51.1 Without '71 & '72 775 451 1226 ~.Wthout 171 & 172 63.2 36.8 o . 28 The nearly equal distribution \'Ias caused by construct'ion of large blocks of apartments in }97l-72, ~~ch of it college-oriented. The percentages during the other eleven years of this time span were 63.2% single-family and 36.8% multiple-family. This is a ratio of 1.72 to 1. . -- Projections used here assume that the enrollment at'Southern Oregon State College will remain stable or grow very slo\'/ly, and that the cost of housing will continue to rise at a rate that will make the single-family home unobtainable for an increasing segment of the population. Based upon these assumptions, the single-multiple ratio used for urban growth boundary calculations is 1.5 to 1. 3) Persons per dwelling unit: For purposes of estimating the number of dwelling units needed to house additional population by 2000, it is assumed that multiple units will average 2.0 persons per unit, single-family units 3.0. These figures are based on a s.amp1e of 1970 block statistics for Ashland in areas \'here sing1e- family and apartment units predominate, and taking into account the general trend toward smaller households. 4) Number of units: The assumptions of the preceding sections are as follows: a. Ashland will grow by 6008 persons by 2000. b. The ratio of single-family to multiple-family units built during the period will be 1.5 ~o 1. c. Persons per dwelling unit will be 3.0 for single and 2.0 for multiple units. These assumptions yield the following figures: No. of Units Persons per D.U. Total No. of Persons Si ngl E!-Fami ly I:Jn i ts 1387 3.0 4161 Multiple-Family Units TOTAL 925 .23;;12 2.0 1850 6011 5) Land Consumption: Average size of single-family lots in Ashland is 11,500 square feet, excluding residential farm zones. Multiple-family lots average 3,524 square feet. This yields the following land consumption figures for 2000, assuming 19% additional land for streets. . . Lot Size No. of Total 43,560 Sq. Ft. (Sq. Ft.) X Units = Sq. Ft. X 1 . 19 .;. = No. of Acres Single'-Fam. 11,500 1387 15,950,500 18,981,095 435.7 Multiple-Fam. 3,524 925 3,259,700 3,879,043 89.1 Total 524.8 . j 29 In addition, a 35% factor* is allowed to insure freedom of choice in the market, and to help alleviate land price increases which may be caused by the bound~ry. This produces acreage totals as . follows: Acres Required x 1.35 = Total Acres Required 5i ng1 e..fami 1y Mul ti p"1 e-fami 1y Total 435.7 89. 1 524.8 588.2 120.3 708.5 6) Land Required: There are 239 acres of buildable vacant land zoned for single-family use within the City, and 59 acres of mu1tiple- _ family land (buildable land is defined as being of less than 20% s,lope and having access to a. public str.eet). Subtracting these figures from acres required by 2000 in Section 5, we obtain the required number of acres outside the current City limits: Acres Vacant Acres Acres Needed Required For City = Outside City Single-family 588.2 239 349.2 Multiple-family 120.3 59 61.3 TOTAL 708.5 298 410.5 * The use of 35% of the acreage required as a factor to insure choices in the marketplace ;s an arbitrary figure and may change over time. If only the exact amount of land required for urban development were included within the urban growth b9undary, the value of undeveloped parcels could escalate sharply as most of the land available for urban use was. developed. The 35% factor insures a range of choices for urban development. B) Commercial and Industrial land 1) There are currently 132 acres of developed commercial land within the City, representing an acres per thousand ratio of 8.73. There are 47 acres of developed industrial land, an acre per thousand ratio of 3.11~ Given a population increase of 6008 persons, and assuming tha,t..these ratios approximate actuaJ need levels, the following quantity of land will be needed -by 2000: Acres per P6pulation Acres 1000 ratio X Increase = Required Comme r'ci a 1 8.73 6.008 52.45 Industrial 3. 11 6.008 18.68 TOTAL 71. 13 Allowing 35% for adequate market choice, total acreage needed is: Acres 1.35 = Total R~quired X Acres Requi red Convne r'c i a 1 52.45 70.81 Industrial 18.68 25.22 TOTAL . 11. 13 - 96.03 30 :- Some of this need may be filled.by the vacant land nO\'I within the City; 36 c~mnercial and 44 industrial acres. For the sake of projection, however, it has been assumed that the figures above will be needed in the form of additiional land outside the City. G) Summary . Sections A and B have calculated total acres needed for Residential, Commercial and Industrial land uses by 2000. This figure for land outside the City Limits is 506.5 acres. To this should be added the national standard of 10 acres per 1000 people for park land, yielding a need for 210 acres for 21,000 persons. Subtracting the existing 119 acres of City parks gives an acres required figure of 91 acres. The airport is also added (152 acres), and a 5% figure is added for public land (schools and other public lands and building). The 5% calculation does not include the airport. Land Category Si ngll~-fami ly Multiple-family Commelrci a 1 Industrial Parks Ai rpo'rt Pub 1 i 4:': TOTAL Acres Required 349.2 61.3 70.8 25.2 91.0 152.0 29.9 779.4 To accomodate the City's projected growth to the year 2,000, 780 acres outside current City limits will be required. V I. SUMMARY -- This. section summarizes the points made in thi 5 report as they led to the se1ection of an urban growth boundary and the adoption of a policy relating to special planning concerns of the City and County. The City of Ashland expects its current population of 15,123 to increase to 21,000 by the year 2000. To acc:omodate the housing, employment, public land and recreation needs of the population, the City will require 780 acres outside current City limits, including the 152 acre airport site.. Local physical factors limiting the City's potential for outward expansion include: a) steep and erosion-prone slopes which exist to the west and south of the City; b) prime agricultural soils which abut the current City limits on the north and east.; and c} the floodplains of Bear, Neil and Tolman Creeks. Development outside the City of Ashland occurs mostly to the southeast of the City; in the area of East Main Street and to the northwest. Some of the strips or spots of development (particularly in the area north of the City --along Highway 99) are unsuitable, due to their location in relation to agri- cultural and rural areas, for inclusion in the urban growth boundary. 31 The unsightly and "unplanned" nature of development which has occurred in the Highway 99 and Valleyview Road area is a special concern of the City and the County, since the area can be considered the "gateway" to Ashland. The County's land use plans for the northern freeway interchange are .a1so a concern. Compact development of the City would help to protect the environmental resources of the area -- the vegetation and wildlife resources in the surrounding rural - and opE~n space areas, and the air resources. Wi th regard to air qua 1 i ty,. compact urban development could foster greater reliance on the regional bus system, . thereby alleviating some of the carbon monoxide problems produced by the wide- spread reliance on the automobile. Even w'ith compact development, the City anticipates some continued traffic problems, such as congestion along Siskiyou Boulevard, and poor access to some rE~sidential areas. The problems could be ameliorated with improvements of roads and streets outside current City limits. Ashland Mine Road and Eagle r~ill Road are two routes which could be improved and linked to additional City streets. , Anothe~ area of special planning concern, relating to transportation, is the airport approach area. The City and County recognize the need to protect the City's airport area from residential pressures. Th~ capacities of existing public facilities affect the costs of further urban growth,. To meet Ashland's water requirements, the City has acquired additional supply from the Talent Irrigation District. If the' City grows much beyond 21.000 people, additional water storage facilities will be required. The City's recently remodeled sewage treatment plant will accomQdate population growth to the yedr 2000. Some water quality problems are likely to occur, however, in Bear Cree,k, which receives effluent from the plant. The City1s Comprehensive Plan has considered the need for other urban services as wel'), as the communi ty grows. . ~ . \ Currently, Ashland1s economy is based on the retail export trade, higher education (Southern Oregon State College), manufacturing and tourism. Many Ash 1 and res i dents :~ork in Medford and Wh i te Ci ty. VII. The Ashland Urban Growth Boundary: As mentioned in the Introduction, a number of urban growth boundary alternatives were evaluated in light, of the<< baokground information presented in this report, and in the Ashland Comprehensive Plan. The boundary finally chosen by the Ashland City Council and the Jackson County Board of Commissioners is shown on Maps 5 and 10. The boundary includes land northwest of the City in the Ashland ~1ine Road area, north of the City around the City's sewage treatment plant and in the East Main area, in the Ashland Airport area and southeast of the City, around the Oak Knoll district. In addition, the boundary includes very small areas to the'south of the City. In total, the urban growth boundary encompasses 904 acres of land outside the current City limits~ The acreage is 15.9% more than the amount of land considered to be essential. The lIextra" land will help compensate for potential factors of poor access, location~ suitability for building, or unavailability, as well as providing a margin of flexibility for part; cul arly rapi d growth. . . . 32 The chart below shows the acreage within the'current City limits, and the urbanizab1e area designated for various land uses by the Ashland Comprehensive Plan. (As proposed in February, 1978.) CITY COMPREHENSIVE PLAN ACREAGE HITHIN ACREAGE WITHIN TOTAL PLAN DESIGNATION CITY LIMITS URBANIZABLE AREA ACRES Rural Residential 488 183 671 (Airport: 85 Ac.) Sub. Residential 1,259 424 1 ,671 (SOSC: 24 Ac.) Urban Low 290 60 350 Urban High 158 158 Retail Commercial 126 11 137 Highway Commercial 38 13 51 Downtown Commercial 25 25 Heavy Commercial 31 31 Light Industrial 20 147 167 Heavy Industrial 59 59 Parks 197 197 Open Space 124 60 184 Forest 100 100 Agriculture 41 41 sose 127 127 Public Facilities 103 6 109 ... 3, 186 4,078 Streets 605 605 3,791 -2P..L _~_695 Sourc:e: City of Ashland Planning Department" February, 1978. About 218 dwelling units were located in the total urbanizab1e area in the spring of 1977. If a household size of 2.83 (the 1970 County average) is assumed, then the urbanizable areats population is around 615. The c:haracteristics of the sub-areas, as shown on Map 10, are summarized in the chart that follows: 32A .' ..,. .' - ------- . LOCATI ON AND EXISTING COUNTY CITY COMPREHENSIVE AGRICULTURE AREA TOPOGRAPHY ACREAGE LAND USE ( 1977) ZONING PLAN SOIL tLASS 1 West of the City 172 13 dwelling units, Almost all RR-5, ~~stly Rural Residential Classes 4 and 6. and east of Ashland mostly on large rural a small pocket with small areas of Open Mine Rd.; rolling lots, much vacant of Ef. Space and Agricultural. hi 11 s and some land. steep slopes 2 North of the City 23 1 dwelling unit; RR-5 Open Space, Suburban C1 ass 4. near Quiet Village City sewage treat- Residential and Public Subdivision; ment plant, vacant Facility. '":. gently sloping. land. 3 Along Fordyce'Street 282 and south of East Main; fairly flat. 58 dwelling units; a few concentrations of lots smaller than 2.5 acres in size, small farms, vacant lands, 2 or 3 rural commer- cial uses. 4 Ashland Airport/ Oak Knoll area; gently rolling. 268 43 dwelling units; Airport and airport expansion area, large Rural Residential lots and small lots (less than 2. 5" acres: in si z.e) along Neil Creek and Tolman Creek. 5 ,Between Southern Pacific Railroad tracks and the freeway, south of the city along the east side of Siski- you Blvd., and along Crowson Rd.; gently sloping. 106 77 dwelling units; smal' residential 10t~ along Crowson Rd. ~ 1 arge rural lot~ in other areas, a 69 space mobile home park near Sis- kiyou Blvd. and Crowson Rd.; some industrial use near r&ilroad. much vacant land. 6 Small strips and 53 pockets of residen- tial development near upper Tolman Creek Road (lots which are already partially within the city) and on the south side of the City below the irrigation canal. rolling and steep slopes. 26 dwelling units mostly an small lots; a few vacant lots. RR-5 with some blocks of EF near the freeway RR-5 with small UR-6 (Urban Residential,6000 square foot lot minimum) between freewa:y and Oak Knoll Subdivision. IC at freeway in- ,terchange, RS at Highway 66 and Dead Indian Road intersection. RR-5 with F-5 south of Crowson Road. RR-5 with F-5 and EF (on lots which are already partially within the City). Suburban Residential~ Urban low density residential, and Open Space. Suburban Residential, Rural Residential, Highway Commercial, and Public facility. Light Industrial and Rural Residen- t; a 1. Suburban Residential and Open Space. Mostly Class 3 with . strips of 1 and 4. Class 1 in Airport area and along Neil Creek; other areas mostly Class 4 with strips of 3. Mostly Class 3 with strips of 2 and 4. " Mostly Class 4 with strips of 3 and 6. '1 I 33 V,I I I Findi ng5~. The findings of the Board of County Commissioners and the Ashland City Council are: 1) Public and affected agency review of the urban growth boundary proposals have rE~su1ted in modifications leading t,O the adoption of the urban growth bounda'~y as described in .this report. 2} Th.~ urban growth boundary: A) Provjdes adequate lands to support Ashland's urban growth needs to the year 2000; i) As stated in this report, the projected City population for the year 2000 is 21, 131 peopTe-.. ii) The urQan growth. bQunda~~ contains approximately 904 acres outside the~ City limtts as, t'tn!yr existed in March, 1978. As docu- mented in this report, the City requires approximately.780 acres for urban growth to the year 2000. The "extra" land inside the boundary will help compensate for potential factors of poor access, location, suitability for building, or unavailability, as well as providing for a margin of flexibility for particularly rapid growth. iii) The boundary will accomodate the needs for housing, employment opportunities and livability. This finding regarding livability is based primarily on consideration of the need to encourage compact development to protect limited air resources and the need to protect open spaces, agr;'cultural and rural lands near urban areas. B} Discourages urban expansion onto some of the best agricultural soils in the area which are left in large parcels; C) Encourage maximum efficiency of land uses within and on the fringe of existing urban areasby encouraging more compact development; (Ji) Protect'; wildlife habitats by excluding, as much as possible, farm- lands and riparian habitats from the boundary; E) Encourages energy efficiency through compact development; F) Involved consid.e.ration of economic factors and social consequences as far as possible. Many. of the. c.omments. from citizens in CAC meetings, at the fnformatiortal meeti"y" aflO" at. the. pub~'ic hearings related to the per- c:ei ved economi c and social consequences of the vari ous boundary proposals. 3) The urbanization polictes: P~) Provide for the logical and efficient extension of urban services to meet the needs of existing and future urban density developments in the area; .B~) Encourage development within urban areas before conversion of urban- izable areas. 34 4) The boundary and policies meet the requirements of the Statewide Planning Goals with the exception noted here. The urban growth boundary includes Class 1, 2, 3, and 4 agricultural soils. The reasons for including the agricultural soils: A) The City of Ashland will need the areas for future urban use by the year 2000; B) 'No alternative areas for urban expansion exist which do not have Class 1 through 4 agricultural soils. Ashland's expansion to the south and to some extend to the west, is hampered by excessive slopes. which cannot safely and within reasonable costs accomodate urban land uses. The boundary is an 'alternative to the inclusion of large blocks of prime agricultural s.oils which are currently in farm use. C) If the urban growth boundary did not include the areas, the City of Ashland would have no ar~as for future expansion. Urban density develop- ment in the areas of good agricultural soils is likely to discourage, in the future, the small hobby farms and rural residential development which currently exist in some of the areas. The social and economic impact on persons ,who currently live in the area is likely to be adverse, but the long term economic and social consequences to the City of Ashland as a whole will be positive. Some environmental impact is expected as the rural areas become urbanized. The energy consequences would not be adverse as the urban growth boundary and urbanization policies encourage compact urban development. D) Urbanization of the areas will be compatible with the agricultural, rural residential, and other land uses outside the urban growth boundary. 35 VIII. Urbanization Policies, Rcvic\'1 ond ^,ncndmcnt Procedures. The folllowing policies \.1i11 guide the administration of the urban grm'lth boundat~ for Ashland and will provide direction for urbanization of the area. Included after the pol icies lU'C the review und amendment procedure for changing the urban gro\'th boundary and the urbanization policies. - ~ 1) An urban growth boundary adopted herein or hereafter amended for the ,Ashland area will establish the limits of urban growth to the year 2000. A). City annexation shall occur only \'/ithin the officially adopted urban growth b9undary. B) Specific annexation decisions shall be governed by the official annexa- . tion policy of the City of Ashland. The City will provide an opportunity fo: the County to respond to p'endi ng requests for annexati on. C) Establishment of an urban growth boundary does not imply that all land .included within the boundary will annex to the City. 2) A change in the use of urbanizable land from land uses designated on the Jackson County Comprehens i ve Pl an to uses shm'ln on the Ci ty Comprehen- sivE~ Plan shall o"nly occur upon annexation to the City. . A} Development of land for uses designated on the City Comprehensive Plan wil) be encouraged to occur on underdeveloped lands adjacent to or encompassed by the existing City limits prior to the conversion of other lands within the boundary. . B) Urban facilities and .services must be adequate in condition and capacity to accomodate the additional level of growth, as allowed by the City Comprehensive Plan, prior to or concurrent with the land use changes. -. 3) Jackson County shall retain jurisdiction over land use decisions witb7n the unincorporated urbanizable area and such decisions shall conform to these adopted policies. A} Recogn; zi n9 that uni ncorporated areas wi thi n the urban gro\'/th boundary could ultimately become part of Ashland, the City's recommendations will be given due consideration. It is the intent of the County to administer a mutually adopted City/County policy in the urbanizable area until such time as the area is annexed. B) The City will be requested to reipond to pending applications for land use changes in the unincorporated urbanizable area. If no response is received, the County will assume the C1ty has no objection to the request. .,C) The City,\.,i11 request the County to respond to pending applications for land use changes within the incorporated area which could affect lands under County jurisdicti6n. If no response is received, the City will assume the County has no objection to the request. . , 4) All new subdivision' and land partitioning activity within the unincor- porated urbanizable a~ca shall conform to urban standards as set forth in the Jackson County Subdivision Or'uinilncc. . . 35 5) Li\nds within the lu'bJnizable area \'Jhich clH'rcntly support a farm use. as,dcfined by ons 215.203, shcJl1 be encolu'Jqcd, through zoning and Jpprop- ri,l1tc t~x incentives, to remain in that use for as long as is "economically feas i b 1 e" for the property ovmer. '- A} "Economically feasible" as used in thi,s policy will be interpreted to mean feasible from the standpoint of the property owner. Implementation of this policy will be done on a voluntary basis. Exclusive Fi1rm (EF) Zones may be applied to qualifying land by the County, \'/ith the understanding tha such land is still considered available over a period of time for urban use B} This policy applies only to areas identi'fied by the City or County Camp: hensive Plan as agricultural land within the urban grm'Jth boundary, and'sha' not be used as a standard to review other land use appl ications \'Iithin th\e urbani zabl e area. .. " '. 6) The City, County and affected agencies shall coordinate the expansion and developn1ent of all urban facilities and servi~es within the urbanizable area. A) Provisions for urban facilities and services shall be planned in a manner limiting duplication in an effort to provide greater efficiency and economy of operation. B) A single urban facility and service extended to the urbanizable area must be coordinated with the planned future development of all other urban facilities and services appropriate to that area, and shall be provided at levels necessary for expected uses as designated on the City's Comprehensive Plan. , . 7) An area of mutual planning concern is hereby established along with . the urban gro't/th boundary. This area lying immediately outside the urban growth boundary and within one mile of the Ashland City limits, represents the general geographical area where Ashland and Jackson County will cOLtinue to coordinate planning activities, including those pertaining to reque~ts ' for changes in land use. In addltion, the City and County will coordinate their planning activities with regard to the following issues or areas which are of mutual concern: . .- A) Development of site review standards by the County, B) ,Eagle Mill Road, C) County roads inside the City, D) Ashland Airport approach area. E) Grizzly Peak; and F} North Ashland freeway interchange and Valleyview/Highway 99 area. .8) Long-range transportation and air quality planning for the urbanizable area and the urea of mutual planning concern shall be a joint City/County process cpordinatcd with all affected transportation agencies. 9) All County road constructio.n and reconstruction in thc/urbanizable area shall be buil~ to urban standards. 37 10) Extens i on of servi ces outs i de the urban gro\'/th boundary sha 11 conform to the following: AI) Servi ces may be extended outs i de the urban growth bounda ry where: 1) Services are needed to solve an immediat~, w:ll-documcnte~ health problem affecting all of the propertles 1n a wel1-deflned area, and, ii) The services are sized and provided to serve the existing dwelling units only, and, iii) The City and County Planning Commissions and Governing Bodies find that there will be no'adverse environmental impacts. iv) Services may be extended to additional dwelling units in exceptional circumstances where necessary to extend to those units addressed in paragraph i) above, and, v) The cost of extending services shall be borne by the applicant. B) Section A above shall apply equally to any proposed service ~xtension b~ agencies or speGia1 districts other than the City of Ashland lnto the area of mutual concern defined in Policy #7. C:) No extension of services capable of supporting additional urban density grm.,th shall be made outside the Urban Growth Boundary. 11) Proposed land use changes immediately inside the urban growth boundaries shall be considered in light of their impact on and compatibility with agriculture and other rural uses. Amendment Procedures for Urban Growth Boundary and Urbanization Policies: The procedure for .ioint City and County review and amendment of the boundary and policies is established as follows: -. 1'1ajo." Revi sJ Ol1S f.1ajo." .'eVl s lons in bOllndJ ry or' po 1 i c i cs '<Ii 11 be cons i dercd amendments to both the City Jnd County comprehensive pl()ns, and as such, are subject to a lcgisla- .. tive review process. . A major revision shall include ilny boundary change that has ''iidcsp.'Clld and signi-- ficant impact beyond the imm~diilte arca, such as quantitative chan9l~s a110\.:ing for substantial changcs in population 0." si9nificant incrcJses in resource im- pacts; qUill itative chJngcs in the l\1nd use i tsel f, such as conversion of }'csidcn- tial to indust.'ial use; 0.' spatial chJngcs thdt Jffl~ct large JreJS 0.' many dif- ferent O\':ncr'ships. Any change in urbJnization policies is considered a lIlajor r~vision. . . "'ajot' .'cvisions ''i11 be considered by the City and County at five yr.ar intervals fr'om t.he datc of adoption of the lwbJn gr'o\'/lh houndl\t'Y and \lrbi1I1L~,1lion pol icies. .If the City and County vovcrning bodies find that Ci,'cllIl1stances prL'vJll ,':hich hJVC a significunt effect on the public h(~alt.h, $aft~ty or' venera1 ''Iclfare of the community, ,1 II1Jjo.' revision could bc conside.'cu ill intc,'vJls of less thun five yea "S . ' . . 38 I I . i . ^ r('fJw'st rOt' a 1I1(,jo.~ revision c.an he irritiatcd hy an individu,\l or ~rolJp, cit- L~l".1 advis.ory cOII:lI1iltccs, affecLed a~Jt~ncies, and ~Jovernin~ bodies. The party . \'Iho sl't~ks the .'(~vision shall h(~ rc~ponsiblc for riling (Hlcqlh1te \.trittcn dL)(t!li:cn- talion \.,il.h the Ci.ly ,1ud County governing bodies. final le~islativc ar.tion'on lJIajor )'t~vision reqlll~sts shall be bJsed on thc ft;>llo\'/iuH factors: 1) Ol~monstt\\tcd rH~cd for the cfh1ngc to accommodate unpredictcd pop- ull\tion trends, to satisfy Ul'lKH1 housing needs, or to assure adCfJtlc1te employml~nt opportunities; 2) The ordet"ly and economic provision of key public facilities; 3) r.1l\xill1uni efficiency of land lIses \.tithin the current urbanizable a .'ea ; '. - . 4) Envit'onmcntal, energy, economic and social consequences; 5) Compatibility of the proposcd change \.lith other' elements of the City and Coun ty. cOi;~prehcns i vo plans; 6) Thc othcr .Statc\'Jide planning goals. r'iojor revision proposal's shall be subject to a 11111tuc1l City and County revic\'i and ~!'J'-t'c;;:ent process involving affected agencies, citizcn ~dvisory com.!1ittces, and thc general public. . . t., i r~.~E U 11 d a ry _1.1..!Le_ j~Lj~.. 2~!1~!1 t s '-iinor adjustments to' an ut'ban gro\-/th boulldJry line IHJY be considered subject to s i III i 1 ~,... procedures u sed by the City and Coun ty. in hea ri ng zon i ng t"cqucs ts . A minor cmendment is defined as focusing on specific individual properties and not. having significi1nt impact beyond the immediate area of the change. f\ppl iCution for a minor boundary line <imcndment can only be made by property' o\':ners, their authorized agents, or'by a City or County 90verning body. H}"itten 'appliciitions for JlI1cnthl1cnts may be filed in the office of the Jackson County ._ Ocporti:~cnt of Planning and Development on forms prescribed by the County. The standards for processing un application are found in the Zoning Ordinance for Jackson County. - . 1) Documentlition must exist indicating the minor adjustment is based on: A) A demons tra ted need for the change cons i s tent \./i th the urban j.za- tion policies of the City ond County. B) r"1aximurH efficiency of l~nd u~c and urban facilities and services. C) The effect on the existing .land use character in the ilfJTIcdiatc a n~l\ 0 f the t- ;~C1l1(~S t. 2) Applications ,\'/i11 he reVle\'/r.d by the affccted City and County P1Jnning Adv i sory CoulIn i t tees u nnUl\ 11.Y. . , t 39 3) The applications will be re~iewed at a joint City and C9unty Planning Commission meeting held annually for the express purpose of consider- ing minor boundary line adjustments. 4) The Planning Commissions are required to fan-lard a recommendation and findings on each application. to the City and County governing bodies' for final consideration. 5) Amendments cannot be made to the urban grm.,th boundary 1 ine unless mutually agreed to by a majority from each governing body. The County governing body shall be responsible for the preparation of the actual legal instrument \'/hich officia.lly amends, the boundary line. . t 1\SSUHP'rIONS 1. Interpretive classification is b~5ed on the effects of combinations of climate and permanent 50il characteristics on risks of soil damage, limitations in use, productive c~pacity and soil management requirements. 2. Soils within a capa~ility class are similar only with respect to degree of limitations in soil use for agricultural purposes. 3. J\ mod,erately_hi~evel of management is assumed, that is practical and within the ability of a majority of the farmers and ranchers. The capability_ classification is not a groupL.g of soils according to the most profitable uses to be made of the land. 4. Capability classes I through IV are distinguished from ~~ach other by a SUTThl1a tion of the degree of 1 Imi ta tions c)r risks of soiJ,f."damage that affect their management Jcequirements fo)n'~-long-time sustained use for cultivated c::rops . 5. Presence of excess water on the surface o~ in the soil; 'lack of water for adequate crop production, presence of stones, soluble salts or exchangeable sodium, or hazard of overflow are not considered permanent 'limitations to use where the removal of these limitations is feasible (2). 6. Soils considered feasible for improvement by draining, lrrigating, removing stones, removing salts and/or ~~xchangeable sodium or by protecting from overflow are classified according to their continuing limitations in use, or the risks of soil damage or both, after the :improvements have been installed. (Placing wet soils iri classes II, III, IV does not i~ply ~hat they should be drained.) Where it is considered not feasible to . :irnprove soils they are classified according to present l imi ta tions in use. . -. 7. Soils already drained or irrigated are grouped according to the continuing soil and climatic limitations and Jr'isks that affect their use under the present systems c:>r feasible imp.::::ovements in them. (2) Feasible means (1) that the characteristics and qualities ~f the soil are such that it is possible to remove the limitation and (2) that over broad areas it is within the realm of present economic possibility to remove ~t.he 1imi ta tion. , . . ... . . j. " 1 j. ,'-. . APPENDIX .. EXPLANATION OF LAND CAPABILITY CL^SSIFICATION SYSTEM Capability Classification - an interpretive grouping made primarily for agricultural purposes. _ Based on indi~idual soil mapping unit. PURPOSES Purposes of the capability grouping of soils are to: -1 1. 2. 3. Help people to ~se and interpret soil maps, Introduce users to detail of soil ~ap. , Make possible broad generalizations based on soil potentials, limitations in use and management problems. CAPABILITY CLASSES The risks of soil da~age or limitations in use become progressively greater from Class I to Class VIII. Classes I, II, III, IV Are caDable, under aood manaaement, of producing adapted plants: such'as for~st treesJor range plants, and the com- mon cultivated field crops (I) and pastur~ plants. Classes V, VI, VII Are suited to the use of adapted native plants (~soils in Cla~sses V and VI are also capable of producing specialized crops, such as cer~ain fruits, (nuts) and ornamentals, and even field and vegetable crops under highly intensive managE~ent involving elaborate practices for soil and water conservation). . , Class VIII Do not: return on-si te benefits for inputs of. manage.TI\ent for crop~, grasses or trees. . /. The grouping is done primarily on the basis of soil capability to prc)duce common cultivated crops and pasture plants 'without deterioration ov~r a long period of time. (1) Common crops ;include: corn, wheat, tame hay and pasture cjats, barley, sugar beets, field grown vegetables, field peas and beans, most clean cultivated fruit, nut and ornamental plants. DO NOT INCLUDE: cranberries, blueberries and fruit, j~ut and ornamental plants that require little or no 4:ultivation which in some instances may be on Classes V and VI. : . Class III-Soils have severe limitations that reduce the choice of plants or require special.conservation practices or both. More restrictions than those in Class II and when used for cultivated crops the conservation practices are usually more difficult to apply and maintain. May be used for cultivated crops, pasture,< woodland, range'or wildlife. They usually have moderate to ~evere soil limitations for urban development. Limitations: (1) moderately steep slopes, (2) high erosion hazard or severe effects of past erosion, (3) frequent overflow.with some crop , damage, (4) very slow subsoil pe-rmeabili ty, (5) \- wetness after drainage (6) shallow depth to bedrock or pans that limit rooting zon~ and water storage, (7) low moisture holding capacity, (8) low fertility not easily corrected, (9) moderate salinity- alkalinity, (10) moderate climatic l.i:mitations. Class IV- Soils have very severe limitations that restrict the choice of plants, require very careful manage~ ment or both. . Restrictions are greater than for soils in Class III and the choice of plants is more limited. When cultivated more careful management is required and conservation practices are more difficult to apply and maintain. May be used for crops, pasture, woodland, range Qr wildlife. Many of these have moderate or severe soil limitations for urban development. . ... Use for cultivated crops is limited as a result'of the effects of one or more permanent features such as (1) steep slopes, (2) severe water or wind erosion hazard or effects of past erosion, (3) shallow soils, (4) low moi,sture.~hQlding capaci ty , (5) frequent overflows with severe crop damage, (6) excessive wetness with continuing hj9.zard of water logging after drainage, (,7) severe salinity or alkali, (8) moderately adverse climate. . .. Some soils in Class IV are well suited to one or more of the special crops, such as fruits and ornamental trees and shrubs, but this suitability itself is not sufficient to place a soil in Class IV. . .f 8. Cap.ability groupings CHANGE as new information about the bch~vior and responses of ~qils becomes available. 9. Distance to market, kinds of roads, size and shape of the" soil areas, locations within fields, skill or resources of individual operations and other charac- teristics of land ownership patterns ARE NOT CRITERIA for capability groupings. 10. Soils suited to cultivation may also be suited to other uses such as prlsture, range, forest, wildlife or urban. Some not suited for cultivation may be suited for pasture, range, forest and wildlife or u~ban; others are ~uited only for pasture, range and wildlife, others. only for forest and wildlife and a few suited only for w-ildlif'e recreation and water-yielding purposes. c CAPABILITY CLASSES LAND SUITED FOR CULTIVATION AND OTHER USES Class I - Soils have few limitations that restrict their use. Suited to a wide range of plants and may be used safely for cultivated crops, pasture, range, woodland and wildlife. The local climate must be favorable for growing many of the common field crops. Often they have few soil ~imitations for urban development (3). ' - Class .II- Soils have some limitations that reduce the choice of plants or require moderate conservation practices. They require careful soil management, including conservation practices, to prevent deterioration or to improve air and water relations when the soils are cultivated. Limitations are few and practices easy to apply. MdY be used for cultivated crops, pasture, range, woodland or wildlife. Some have few soil limitations for urban develoDment. Others may have severe limitations. ~ co. Limitations may include singly or in combination (1) gentle slopes, (2) mQderate erosion hazard or effects of past erosion (3) less than ideal soil depth, (4) somewhat unfavorable soil structure and workability (S) slight to moderate salinity or alkali (6) occasional damaging overflow, (7) wetness correctable by drainage but existing' permanently as a moderate limitation, slight climatic limitations on soil use and management. v (3) The SCS Land Capability Classification System does not imply, in any way, the feasibility on desirability of using any soil area for urban development. .. . . . Impractical to apply pasture or range improvements. Soil restrictions more severe than those in Class VI because of one or' more continuing limitations that cannot be corrected, such as very steep slopes, erosion, shallow soil 1, stones, wet soil, salts or alkali, unfavorable climate or other limitations that make them unsuited for common cultivated crops. They can be used safely for 'grazing or woodland or wildlife food and cover, or some combination of these, under proper management. They are not spited f9r any of the common culti- vated crops. In unusual instances, some soils in thip class ma..y; be' used. feu: specj.a..l, crops under unusual managem.an:t.. px:ac...ti.c.e..s,. ~. . Class VIII-Soils and land forms have limitations that preclude their use for commercial plant production and restrict their use to recreation, wildlife, water supply or aesthetic purposes. These soils cannot be expected to ~eturri significant on-site benefits from management for crops, grasses or trees although benefits from wildlife use, wat~rshed protection or re,creatlon may be possible. Limitations that cannot be, corrected may result from.the effects of one or more of' the following: (1) erosion or erosion hazard, (2) severe climate, (3) wet soil, (4) stones, (5) low moisture holding capacity and (6) sa>linity, or alka'li. Bad lands, rock outcrop, sandy beaches, river wash, mine tailings and other nearly barren lands are included in Class VIII. GUIDE FOR PLACING SOILS IN CAPABILITY CLASSES The fl::>llowing guide is used in Oregon to place soils in capab.ili ty classes,. ," The guide is subject to change' a'S' the soil classification system is refined. Changes in effect may not be reflected in the guide which is revised only periodically. . The guide is used and revised by u.s. Soil Conservation Service soil scientists. -~--------~~----~-----------~-------------------------~~--- This explanation of the Land Capability Classification System is summarized from USDA, Soil Conservation Service, Administrator' s ~temorandurn SCS-136, 5-19-58 (Soils ~lemorandum- 22) and Soils Memorandum SCS-30, 8-11-59. ' ' . ,." -. "--'... ....... .. , . , . . . 'C1\P1\DIIIITY CLASSES LAND LIMITED IN USE-GENERALLY NOT SUITED FOR CULTIVATION Class V - Soils have little or no erosion hazard, but have other limitations that are impractical to remove that limit their use largely to pasture, range, woodland, or wildlife. ~ Limitations restrict the kind of plants that can be grown and prevent normal tillage of cultivated crops. They are nearly level but some are wet, are frequently overflowed by stream~, are stony, have climatic limitations or have some combination . of these limitations. : ~ Examples: (1) soils of bottom1ands subject to frequent overflow that prevents normal production of cultivated crops, (2) nearly level soils with a growing season that prevents normal production of cultivated crops, (3) level or nearly level stony or rocky soils, (4) ponded areas where drainage for cultivated crops ~s not feasible but where soils are suitable for grasses or trees~ :'Cultivation of common crops is not feasible. Class VI- Soils have severe limitations that make them generally unsuited for cultivation and limit their use largely to pasture or range, woodland or wildlife. May be used for urban where it is feasible to overcome limitations. Practical to apply range or pasture improvements. Continuing limitations that cannot be corrected: (1) steep slope, (2) severe erosion and effects from past erosion, (3) stoniness, (4) shallow rooting zone, (5) excessive wetness or overflow, -. (6) low-moisture capacity, (7) salinity or alkali, (8) severe climate. ~ S~me soiis in Class VI 'can be $afely used for the common crops providing unusually intensive manage- ment is used. Some soils in this class are also adapted to special crops such as sodded orchards, blueberries, etc. requiring soil conditions unlike those demanded by the common crops. Class VII-Soils have very severe limitations that make them unsuited for cultivation and that restrict their use largely to grazing, woodland, wildlife. 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