LEAGUE OF WOMEN VOTERS OF LANE COUNTY
METROPOLITAN GOVERNMENT
Everymember Material – Part 2
MARCH 2006
At the 2004 Annual Meeting
of League of Women Voters of Lane County (LWVLC), members agreed to embark on a
two-year restudy of our Metropolitan Government and other related local
positions. It was the membersŐ belief that the existing positions may not
adequately address the issues involved, especially given current financial and
political limitations to citiesŐ providing public services.
In May 2005 League members
discussed the changes to OregonŐs tax law of the 1990s, with Ballot Measures #5
and #50, and the options available for providing urban services.
Because these tax laws
drastically limit the local property taxes available to fund city and county
services, local governments are looking for other ways to provide the services
citizens have become accustomed to and are still expecting. Now League members
are being asked to concur with proposed revisions to two LWVLC positions: Metropolitan
Government and Lane County Finance. These revisions, if approved, will broaden
the first position not only to apply to all cities in Lane County but also to
endorse special districts as an acceptable option for service delivery. They will
broaden the second position to apply to all local governments in Lane County,
not just county government.
How do we provide needed
urban services in Lane CountyŐs growing communities? What system of taxation
will pay costs in an equitable way? The League has been looking at these issues
for some time and has positions that speak to these problems. This study
committee has looked at the changes of the past few years and is suggesting
some adjustments to these positions to deal with new realities.
Oregon Tax Law. The Metro Government unit meetings last
spring explored the current Oregon tax requirements established in the
Constitution of Oregon by ballot measures. Combined local government property
tax levies must not exceed $10 per thousand of assessed valuation and are
reduced if that cap is exceeded. The realities of this financial arrangement
have made special districts attractive, but their establishment or expansion is
complicated and usually requires a vote of the people.
In areas where total levies
are well below the cap, a special district can give a city additional funds by
shifting a service like fire protection to a district. The city levy remains
the same, but the cost of that particular service is covered by a new special
district tax. This process of forming special districts is prohibited in the
Eugene-Springfield area by the Metro Plan, but it has been used by other Lane
County cities such as Cottage Grove, Junction City, and Creswell.
Our current position on
local government finance applies only to the County but with a few adjustments
seems relevant to other taxing entities such as cities and special districts.
The Oregon League has a long history of taxation study at the state level, and
this local position agrees with our state findings. One sentence from the state
position reads: ŇA tax system that is equitable, adequate, stable, easy to
administer and is as simple as possibleÉ.Ó Within the framework of the law, we
want the same for local governments in Lane County.
Urban Growth Boundaries
and Urban Services. Planning
in Oregon is supervised by the state under a set of rules developed by the Land
Conservation and Development Commission. The actual planning and zoning is done
locally by cities and counties, with state review when requested. All cities
have established urban growth boundaries outside their city limits -- areas that
probably will be annexed at some time in the future as the city grows and which
often contain patches of urban development. The County handles planning in this
area between the city limits and the urban growth boundary for the smaller
cities, but Eugene and Springfield are in charge of decisions for their areas.
For instance, to build on a vacant lot in unincorporated River Road requires
annexation to Eugene before a building permit is issued.
State planning philosophy
encourages controlled growth and higher urban density in order to prevent
sprawl and protect farm and forest land. The extension of infrastructure is
costly, and services can be more efficiently and economically delivered in
areas of compact development. When urban services such as sanitary sewer and
water are provided to areas outside the urban growth area, increased pressure
for urban development in rural areas occur.
Because the County comprises
so many different kinds of properties, it has a complex set of regulations found
in Lane Code designed to allow reasonable uses while protecting valuable
resources. For instance, a new dwelling may be constructed on a 160-acre farm
with low-value farmland, but better farmlands have more restrictions on home construction.
The same is true of forestlands. The purpose of the F1 zone is to promote the
growing and harvesting of forest tree species as the leading use on forestland
and also to provide for recreation and agriculture. Existing dwellings may be
repaired or replaced, but no new dwellings built.
The Eugene/Springfield Metropolitan
Plan notes that the provision of water, sewers, power, education, public safety
and other programs are needed for urban areas to function properly. While these
services are usually provided or supervised by public and quasi-public agencies
such as EWEB or LCOG, they also may be provided by private entities such as
churches, schools, and hospitals. Cities are not the only governmental entities
providing urban services. Lane County, using a variety of different funding
sources, provides health and social services, solid waste management, tax
collection, public safety, and courts. School districts provide K-12 education.
Related League Positions. LWVLC Parklands and Library Services positions
support access to library and parks for everyone in Lane County, though not
necessarily at the same level of service, and are open to service provision by
districts as well as the cities and Lane County. LWVLCŐs Structure of Local
Government position includes ten criteria for evaluating any governmental
structure that provides urban services.
EUGENE AND SANTA CLARA/RIVER ROAD
The Santa Clara and River
Road areas* are within the Eugene Urban Growth Boundary. New
developments in this area are permitted after incorporation (annexation) into
the City of Eugene. However, pre-existing developments are outside the city
limits. Decades of small annexations have created a patchwork of incorporated
and unincorporated parcels. This has made the delivery of some urban services less
efficient. A disparity of services exists between the incorporated and
unincorporated areas of Santa Clara and River Road, with an associated
difference in taxes. The City of Eugene provides fire and emergency services
for all of the River Road area. The Santa Clara area has a volunteer fire
department that provides emergency services to the unincorporated area. There
is also a new city fire station to serve the properties that have been annexed.
Unincorporated River Road and Santa Clara receive police service from the Lane
County SheriffŐs Office. The City of Eugene is compelled to respond to calls in
the area, including crimes in progress, if the SheriffŐs patrol cars are out of
the area. As the SheriffŐs office is unable to respond to every non-emergency
call or investigate every property crime, the unincorporated areas receive a
lower level of service.
According to a 2004 report, the
River Road and Santa Clara areas have fewer developed and undeveloped parks,
with an average of four park acres per 1,000 residents. In the City of Eugene,
residents have an average of eighteen park acres per 1,000 residents. The River
Road Parks and Recreation District serves the River Road area by maintaining Emerald
Park and providing a variety of recreational programs. For library services, households
in unincorporated areas may purchase a City of Eugene library card at a rate of
$80 per year, which is less than what the average city household pays in taxes
for the same services. The main tradeoff for residents in unincorporated areas
is lower taxes and fewer services or higher taxes with an accompanying
increased level of services (which some donŐt want or donŐt believe they need).
The same 2004 report shows
that unincorporated property owners in River Road pay taxes for the River Road
Park and Recreation District, the River Road Water District, and Fire/EMS for a
total of $5.45 per $1,000 assessed property value. Annexed owners pay $8.84 in
city taxes, a difference of $3.39. In Santa Clara, unincorporated property
owners pay for Lane Rural Fire/Rescue at $2.12 per $1,000 assessed property
value or $1.04 for Santa Clara
RFPD. Annexed neighbors pay the City of Eugene $8.84, for a difference of $6.72
or $7.80 depending on which
Fire/EMS. Through annexation of River Road, the City would collect an
additional $3.2 million annually; annexation of Santa Clara would provide an
additional $4.6 million. This would come with an accompanied increased burden
for services, particularly for an increase in staff, officers, and infrastructure.
Also, the City would receive an increase in the state-shared revenues, which
are distributed to cities on a per capita basis.
Parentheses indicate proposed deletions
Underlinings indicate proposed additions
(LANE COUNTY) LOCAL
GOVERNMENT FINANCE
Position: The League of
Women Voters of Lane County believes that the following governmental principles
apply to (Lane County) county, city and special district finances:
1. Democratic government depends upon the informed and
active participation of its citizens.
2. Governmental bodies should protect the citizenŐs
right to know by giving adequate notice of proposed actions, holding open
meetings, and making public records accessible.
3. (County) Local governments must be
responsive to the will of the people.
The League believes that
efficient and economical government requires competent personnel, the clear
assignment of responsibility, adequate financing, and coordination among the
different governmental agencies. (serving Lane County.)
1. Consolidation and coordination of services
(particularly within county government,) should be pursued when (performance
auditing) substantive analysis demonstrates it will eliminate overlap of
responsibilities and improve employee efficiency and cost savings.
2. Contracting (out) services should be approached
cautiously(,). A(a) cost-benefit analysis should demonstrate
savings and assure fair benefits and working conditions for both (county) local
government and contracted employees. (and non-county workers employed by
Lane County contractors.)
3. If cuts are necessary, preference should be based on
an established priority of services, not across-the-board decreases, so that
least essential services are reduced or eliminated first.
4. Likewise, if additional funding is available,
decisions should be based on (an) established priorit(y)ies rather than (and
not) across-the-board increases.
The League believes that
(Lane County) local governments should maintain an equitable,
adequate, stable, and flexible system of taxation that is understandable
and easy to administer (and understand).
1. (The county) Local tax systems should
recognize the individualŐs responsibility for government services by providing
a broad sharing of the tax burden.
2. (The t)Tax systems should be based on
the ability to pay but may apply a benefits-received principle wherever reasonable.
3. User fees may be appropriate for specific services,
but consideration should be given to sliding scales and the cost of collection
before (deciding to) impos(e)ing them.
4. Systems development charges are an appropriate way to
recover the cost of growth, but exemptions for low-income housing should be
provided.
5. (The t)Tax systems must be flexible
enough to adjust to social and economic changes.
(6. Ballot measures
proposing new or additional taxes are most likely to succeed when providing for
specific services and scheduled for general elections.)
Position: The League
of Women Voters of Lane County believes that such basic services as fire
protection, police protection, sanitary sewers and water must be provided to
areas of urban density. In areas that have been allowed to develop to urban
density outside existing city limits, services should be provided after
annexation to the nearest city. If this isnŐt feasible, the League believes a
county service district is the next best alternative for the provision of
essential urban services.
Additional areas of
urban-level density development should not be allowed where urban services do
not now exist or are not planned. To prevent such developments, a comprehensive
plan for the metropolitan area should include a site-specific boundary beyond
which services should not be extended and for which there is an established
method of systematic review. In order for an Urban Service Boundary to be
effective, all local governments must cooperate to enforce it.
The Urban Service Boundary
for the Eugene-Springfield metro area should be the one designated by the
Eugene-Springfield Metropolitan Area Comprehensive Plan.
Position: The League
of Women Voters of Lane County believes that because urban areas require more
governmental services than rural areas, site-specific urban growth boundaries
must be delineated. Eugene-Springfield and the other cities of Lane County also
need a systematic method for reviewing and adjusting such boundaries when
necessary.
Urban services, such as
sanitary sewer and water systems, should not be provided to areas outside the
urban growth boundary. In areas that have been allowed to develop to urban
density outside existing city limits, services ordinarily should be provided
only after annexation to the nearest city. These services must be provided in urban
areas and should be furnished, in priority order, by
á Annexation to the nearest city,
á Formation of a county service district, or
á Formation of a special district.
The League also supports
the provision of libraries, parks, emergency and public safety services, and
other services in urban areas. In evaluating the type of entity to provide
these services, consideration should be given to the criteria in the LWVLC
Structure of Local Government position.
1. What are some changes over the last 25 years that
have had an impact on service delivery to city and county residents?
2. What are some challenges facing both residents and
cities concerning areas between the urban growth boundary and the city limits?
3. Shall we change the Lane County Finance position so
it applies to all local governments in Lane County? Do you concur with the proposed
wording?
4. Shall we change the Metropolitan Government position
so it applies to all Lane County? So it is open to varied ways of providing
urban services? Do you concur with the proposed wording?
LWVLC Metropolitan
Government Everymember Material – Part 1, May 2005
Eugene/Springfield
Metropolitan Area General Plan. 1987 Update
Fiscal Analysis of Urban
Services in River Road and Santa Clara, October 2004
Various publications by the
Land Management Division of Lane County Public Works
COMMITTEE MEMBERS
Emily Schue and Merle Bottge
(co-chairs), Lois Taylor, Ellen Maddex, Mary Ann Holser, Pat Hocken, Janet
Calvert, Renee Buchanan