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HomeMy WebLinkAboutItem 02 Springfield 2030 Refinement Plan (SRP) Urbanization Element Potential Employment Opportunity Sites to Address 20 Year Commercial and Industrial Land Needs AGENDA ITEM SUMMARY Meeting Date: 2/25/2013 Meeting Type:Work Session Staff Contact/Dept.: Linda Pauly/DPW Staff Phone No: (541)726-4608 Estimated Time: 45 minutes S P R I N G F I E L D C I T Y C O U N C I L Council Goals: Encourage Economic Development and Revitalization through Community Partnerships ITEM TITLE: SPRINGFIELD 2030 REFINEMENT PLAN (SRP) URBANIZATION ELEMENT: POTENTIAL EMPLOYMENT OPPORTUNITY SITES TO ADDRESS 20-YEAR COMMERCIAL AND INDUSTRIAL LAND NEEDS (METRO PLAN AMENDMENT FILE NO. LRP 2009-00014) ACTION REQUESTED: 1. Review maps of five Urban Growth Boundary (UGB) study areas identifying the location of suitable employment land and public land for possible inclusion in the UGB (ATT 2); 2. Provide input on Draft Local Comparative Criteria Factors (ATT 4) to inform Springfield 2030 Refinement Plan Urbanization Element goals and policies and Springfield’s UGB expansion proposal; and 3. Discuss opportunities for outreach to property owners and public involvement leading up to the public hearing (ATT 2- 3). ISSUE STATEMENT: Adoption of the Springfield 2030 Refinement Plan (SRP) Urbanization Element will allow the City to identify areas where the UGB will be expanded to include lands designated “Urban Holding Area - Employment Opportunity Area,” establishing future growth areas for economic development and infrastructure planning purposes in accordance with Statewide Planning Goal 9, Economic Development, Goal 14 Urbanization, other applicable land use goals, rules and statutes and local community development, livability and environmental quality goals. The UGB expansion proposal may also include public land, parks, and open space. ATTACHMENTS: 1. Council Briefing Memorandum 2. UGB Study Area Maps 3. Suitable Land Area Summary Chart 4. Growing Springfield: Draft Local Factors for Comparing Equally Suitable Sites for UGB Expansion DISCUSSION/ FINANCIAL IMPACT: Adding suitable large-site industrial land to the UGB would expand Springfield’s land base and create future options for employment growth. Without sites planned and available for economic development, Springfield cannot be considered by firms seeking large sites. The options for expanding the UGB to add the large flat sites required by employment uses are finite given Springfield’s location between rivers and hills. To determine how and where the UGB might be expanded to designate suitable employment sites, staff conducted a UGB Alternatives Analysis, applying the required step-by-step method of the applicable statewide planning goals, administrative rules and statutes to all lands surrounding Springfield’s UGB to identify suitable “Employment Opportunity” sites adjacent to Springfield’s UGB. This work is a refinement and more in-depth look at preliminary growth concepts previously identified and subject to public review in 2009-2010 and at other sites that meet the statutory criteria equally well. The future cost to plan and build infrastructure to serve the new sites will be significant. Staff will provide infrastructure serviceability and cost comparison information at April 1st work session. M E M O R A N D U M City of Springfield Date: 2/25/2013 To: Gino Grimaldi COUNCIL From: Len Goodwin, DPW Director Linda Pauly, Principal Planner BRIEFING Subject: SPRINGFIELD 2030 REFINEMENT PLAN (SRP) URBANIZATION ELEMENT: POTENTIAL EMPLOYMENT OPPORTUNITY SITES TO ADDRESS 20-YEAR COMMERCIAL AND INDUSTRIAL LAND NEEDS (METRO PLAN AMENDMENT FILE NO. LRP 2009-00014) MEMORANDUM ISSUE: Adoption of the Springfield 2030 Refinement Plan (SRP) Urbanization Element will allow the City to identify areas where the UGB will be expanded to include lands designated “Urban Holding Area - Employment Opportunity Area,” establishing future growth areas for economic development and infrastructure planning purposes in accordance with Statewide Planning Goal 9, Economic Development, Goal 14 Urbanization, other applicable land use goals, rules and statutes and local community development, livability and environmental quality goals. The UGB expansion proposal may also include public land, parks, and open space. COUNCIL GOALS/ MANDATE: Community and Economic Development and Revitalization/Mandate. The City advances this goal by addressing an identified shortfall of commercial and industrial land to meet employment needs over the twenty year planning period. ACTION REQUESTED: At the February 25, 2013 work session, the Council is asked to: 1. Review maps identifying the suitable employment sites surrounding Springfield’s UGB. (ATT 2) 2. Review and provide input on “Growing Springfield” (ATT 4), a list of local factors and considerations to incorporate into the Springfield 2030 Refinement Plan Urbanization Element goals and policies and the final filtering step of the UGB Alternatives Analysis. 3. iscuss opportunities for outreach to property owners and public involvement leading DISCUSSION: Springfield conducted a buildable lands study to determine land needs for the ated s by D up to the public hearing (ATT 2- 3). twenty year planning period ending 2030. The Commercial and Industrial Buildable Lands Inventory and Economic Opportunities Analysis identify a 640-acre shortfall of lands design for commercial and industrial development. At two previous work sessions, the Council reviewed and provided input on the proposed SRP Economic Element goals, policies, and implementation strategies intended to meet the goal of providing land for 13,000 + new job 2030. ATTACHMENT 1 - 1 UGB Expansion for Employment Draft SRP Policy E.1 Implementation Strategy 1.1 calls for amending the UGB, Metro Plan diagram and text to add 6401 acres of suitable “Employment Opportunity Areas (EOA)” to provide land for employers requiring sites larger than 20 acres and preserving the suitable sites for future development by creating and applying an “Urban Holding Area - Employment Opportunity Area” (UHA – EOA) plan designation and overlay zone to the sites as described in the Urbanization Element and Springfield Development Code. Results of the Parcel-Level Suitability Analysis to Refine the UGB Study Areas This memorandum provides information to inform the Council about geographic areas surrounding Springfield’s UGB that contain the most suitable employment land. Based on staff’s analysis, the “study areas” mapped in ATT 3 are the best potential employment growth areas for further consideration. The suitable lands are grouped into five study areas: • North Gateway • North Springfield Highway 126/N. 52nd St. • South of Mill Race /S. 28th Street • Mahogany Lane/S. of Jasper Road • Seavey Loop There are a total of 1,343 suitable acres in the five study areas combined. The suitability analysis is the product of a multi-year study conducted by consultant ECO Northwest and city staff. First, the Goal 14 UGB Alternatives Analysis prioritization planning process was applied to all lands surrounding the UGB. Next, the suitability criteria from the Economic Opportunities Analysis were applied to these lands, from highest priority (zoned exception areas and marginal lands) to lowest priority (high value farm and forest land). The intent of Goal 14 is to require careful consideration of lands for urban expansion in this way to ensure that high value resource lands are urbanized only after making a determination that other non-resource lands (previously zoned for rural development), slopes and lower value soils are not suitable for the employment uses identified in the City’s Economic Opportunities Analysis. Only then, and after the City also demonstrates that the proposed employment growth “cannot reasonably be accommodated on land already inside the UGB” 2 (e.g. because land is needed for other purposes), is the City ready to move forward with a UGB amendment proposal. “Suitability” is a factor described in Statewide Planning Goal 9 Economic Development. For land to be considered “suitable” for industrial and other employment3 uses it must have attributes necessary for a particular industrial or other employment use to operate. Uses may require sites with specific physical characteristics such as size, topography, location/proximity, transportation, utilities, compatibility with adjacent uses, distance to or buffering from sensitive land use, etc. “Site characteristics” include, but are not limited to, a minimum acreage or site configuration including shape and topography, visibility, specific types or levels of public 1 Exact number of acres to be determined through the public process leading up to adoption of this draft policy. 2 OAR 660-024-0050(5) 3 As defined in Oregon Administrative Rule 660-009-0005: "Other Employment Use" means all non-industrial employment activities including the widest range of retail, wholesale, service, non-profit, business headquarters, administrative and governmental employment activities that are accommodated in retail, office and flexible building types. Other employment uses also include employment activities of an entity or organization that serves the medical, educational, social service, recreation and security needs of the community typically in large buildings or multi-building campuses. ATTACHMENT 1 - 2 facilities, services or energy infrastructure, or proximity to a particular transportation or freight facility such as rail, marine ports and airports, multimodal freight or trans shipment facilities, and major transportation routes.” [OAR 660-009-0005(11)] Springfield’s Economic Opportunities Analysis on pages 60-63 provides detailed information describing characteristics of Springfield’s needed sites. Suitable acres are portions of tax lots that are free of the following “absolute constraints” which make employment land unsuitable for development: • Flood way* • Wetlands • Riparian resource areas Slopes greater than 15% • curently mapped by FEMA * asr Many of the “suitable” areas shown in green in the maps have “Partial Development Constraints:” •Flood plain • Willamette River Greenway ands with “Partial Development Constraints” are considered buildable and no deductions were corporation of Community Values and Local Considerations into the UGB Alternatives • BPA easements L made from the inventory for these factors. Assumed constraints to be used for the analysis were defined through the Commercial and Industrial Buildable Lands Study (CIBL) with input from consultant ECONorthwest, the CIBL Stakeholder Committee, the Planning Commission and City Council. In Analysis. The next “winnowing” process will select the lands to be included in Springfield’s m the proposed UGB expansion. To help inform the decision process, staff requests input fro Council to prepare a list of community values/local factors (ATT 4) that may be incorporated into the last steps of the screening process. Goal 14 requires the City to apply comparative “ESEE” (Environmental, Social, Energy, and Economic Consequences) factors to compare s This is another place in the analysis where the Council can apply local factors at their discretion to inform the comparison of sites. This is where the Council can drill down into community identity and values, alignment with Council goals, special attributes, infrastructure feasibility considerations, and any other factors to be incorporated into their comparison and selection of expansion areas. This discussion will also inform staff’s preparation of the SRP Urbanization Element goals and policies and the UGB expansion proposal. ites. EXT STEPS rch 18 and April 1st Work Session: Council will review and provide input on Draft arch-June: Prepare UGB Amendment proposal, plan designations and interim zoning, and arch-June: Begin outreach to property owners as directed by the Council. Possible activities ected property owners individually by postcard, letter and/or N thMa Urbanization Element Goals and Policies. M Springfield Development Code chapter for the Urban Holding Area Zone. M include but are not limited to: • Contact potentially aff ATTACHMENT 1 - 3 MEMORANDUM 2/21/2013 Page 4 site information with audio or video. enue(s). d maps) at community events. une –July: Finalize Economic and Urbanization Element draft language and the proposed UGB une-July: Joint Work Session with Lane County Board of Commissioners ugust: Prepare ordinance text, maps, and send mailed notice to property owners and the rs and eptember-October: Joint Public Hearing with Lane County Board of Commissioners ollow-on actions will include development and adoption of the SRP Land Use and Urban telephone. • Provide web • Drop in open house sessions at City Hall or other v • Outreach to community groups. • Provide displays (information an J expansion; submit the proposal to the Oregon Land Conservation and the Development Department. J A interested parties list for the public hearing. Conduct additional outreach to property owne public open house, or other outreach as directed by the Council. S F Design Element, a parcel-specific plan designations diagram, and SRP refinements to other Metro Plan Elements at Council discretion. ATTACHMENT 1 - 4 ATTACHMENT 2 - 1 ATTACHMENT 2 - 4     UGB Study Areas with Suitable Employment Land Springfield’s Employment Land Need = 640 suitable acres STUDY AREA Gross Acres* Suitable Acres In floodplain Outside floodplain Total Gateway 347.4 225.2 1.1 226.3 N. Hwy 126 569.3 167.5 97.4 264.9 S. Millrace 132.3 33.2 92.9 126.1 Mahogany Lane 637.3 227.5 346.7 574.2 Seavey Loop 361.5 46.3 105.5 151.8 *Within taxlots (excludes Right-of-Way, open water, and partial lots outside of study areas)     ATTACHMENT 3 Growing Springfield Local Criteria for Comparing Equally Suitable Sites for UGB Expansion [Goal 14 Locational Factor 3: ESEE Analysis] Alignment with City Council Goals Provide financially responsible and innovative government services  Supports the most efficient utilization of a scarce land supply.  Provides the most suitable acres per total area of expansion.  Provides the lowest cost per acre of suitable land added to UGB.  Contiguous with City Limits and wastewater system.  Location has greatest potential to increase local tax base while minimizing public cost of infrastructure construction and maintenance.  Minimizes length of service extensions/distance to service centers. Encourage economic development and revitalization through community partnerships  Provides the most competitive development sites for industries. (Business Oregon/Metro study data)  Supports TEAM Springfield shared mission and goals.  Land owner has expressed interested in developing or selling within 1-3 yrs, or within the next 20 years.  Development could help create better public access to local amenities, highlight natural beauty of the area and provide nearby park/recreation/open space amenities for workforce and public.  Location is serviceable from an existing or planned transit system.  Expands existing employment center(s) vs. creating new center(s).  Location provides an opportunity to locate adjacent to an existing industry cluster. Strengthen public safety by leveraging partnerships and resources  Supports resilience to natural hazards and emergencies (e.g. flood abatement by limiting amount or type of new development in the flood plain).  Location is serviceable from existing or planned emergency response facilities. Maintain and improve infrastructure and facilities  Supports improvement of services to existing neighborhoods by enabling future improvement/connections of public facilities and infrastructure to serve land already inside the UGB.  Strengthens City’s ability to protect and ensure the stability of its drinking water supply to meet current and future needs.  Supports/ Strengthens City’s ability to resolve an identified infrastructure/public ATTACHMENT 4 - 1 facilities problem (e.g. public drainage system connection, street connectivity, septic system failures).  Supports City’s adopted “Key Outcomes for Stormwater” (2004, 2008): Protect citizens and property from flooding Ensure compliance with State and federal requirements to reduce risks of third party lawsuits or enforcement actions Improve surface and subsurface waters for aquatic life and other beneficial uses Preserve and maintain surface waters, wetlands, and riparian areas as functional and attractive for people, fish, and wildlife Citizens, businesses, and industries understand the need to protect water quality Provide regulatory certainty for the development community while ensuring that growth is not constrained by lack of planning or facilities Urban drainageways become community amenities Promote and enhance our hometown feel while focusing on livability and environmental quality  Maintains and reinforces community’s identity and sense of connectedness.  Supports community and visitor access to local and regional rivers, parks, recreation and open space amenities and destinations through an integrated greenway network weaving nature into the city as Springfield grows.  Supports protection and restoration of natural resources and environmental services.  Maintains, supports and encourages growth of local agricultural/horticultural production, innovation and food processing industries and retains land zoned for farming on the urban fringe as a community benefit with cultural and spiritual values and value for tourism.  Location supports transportation and land use planning goals for VMT and GHG reduction.  Location is walkable/bikeable from residential areas, from an existing or planned transit station or route, or potential future transit route extension.  Closest to I-5/I-105/OR126B.  Increase in traffic congestion is acceptable/manageable without costly improvements to freeway interchange(s).  Site surroundings have positive aesthetics.  Site surroundings have negative aesthetics– could use quality future development to repair, improve and enhance.  Site surroundings are at risk to resource development that has potential to detract from City’s physical setting/aesthetics/natural assets and ability to attract new employers. ATTACHMENT 4 - 2