HomeMy WebLinkAboutPacket, DRC PLANNER 10/16/2013 • CITY OF SPRINGFIELD- D•LOPMENT REVIEW COMMITTEE RECEIVED
DISTRIBUTION DATE October 21,2013
TO:
*Current Planning Staff: Gary Karp, Jim Donovan, Liz Miller61rk Metzger, .
Linda Pauly,Tara Jones, Andy Limbird, Molly Markarian OCT 1 6 2013
*Ken Vogeney, Emergency Manager/City Engineer–Development and Public Works Department
— Brian Barnett,Traffic Engineer/PE, Dev&Public Works Department(agenda only,7(Q2) --1).?„,c��C I ci
*Michael Liebler,Transportation Planning Engineer, Dev&Public Works Departm
*Gilbert Gordon, Deputy Fire Marshall, Fire&Life Safety Department •
Melissa Kennedy, Fire Agenda only I O-- - 51 QS
*Ronni Price, Planner,Willamalane Park and Recreation District I
Kuri Gill, Chair, Historic Commission
*Sanjeev King, Springfield Utility Board(Electric)
*Ray Meduna,Water Division Engineering Manager-Springfield Utility Board(Water)
*Bart McKee,Senior Civil Engineer-Springfield Utility Board(Water)
Jack Foster, Springfield Utility Board(Energy Conservation)
Amy Chinitz, Springfield Utility Board(Drinking Water)
*Jim Henry, Central Lane Communications 911
- Jennifer Dockery,Central Lane Communications 911
_ Leo Lambert, US Postal Service
*Will (sham, Northwest Natural Gas(John Radosevich,alternate reviewer)
- *Lydia McKinney Lane County(Dan Ingram reviewers) Bill Morgan (cc only)
Thomas Jeffreys, Emerald People's Utility District(EPUD)
George Ehlers, Lane County Sanitarian [Urban Transition Zone] (if applicable)
Jamie Porter, Rainbow Water District(Dean Hill alternate reviewer)(*only if in the North Spfld area)
Sally Markos, Lane Regional Air Pollution Authority (if applicable)
Tom Henerty,Comcast Cable (if applicable)
Mark Oberle, EWEB(electric) (property)
Rod Wade, EWEB(water)(*If in Glenwood)
Jeff Towery -Assistant City Manager(agenda)
John Tamulonis, Economic&Community Development Manager (agenda)
*David Bowlsby, Building Official DPW
*Greg Ferschweiler, Keith Miyata, Brian Conlon, DPW Dept.
*Craig Fitzgerald, Maintenance DPW Dept
Sunny Washburn, Environmental Works Dept., (agenda only)
Richard Harrison- AIC Police Chief, Police Department (agenda)
*Tom Schwetz, LTD, Planning and Development Director
Norm Palmer, CenturyLink
*Gerard Juster, Planning&Development Manager, ODOT, State Highway Division
- John Saraceno,Asst Dir. Maintenance Facilities; Springfield School District (agenda)
William Lewis III, Financial Services,Springfield School District(agenda)
Joe Leahy, City Attorney
Chris Moorhead, City Surveyor
Brenda Jones,Administrative Specialist-Annexation
A request for land use action, as described on the attached agenda, has been received by the Development Services
Office. Specific concerns of your division/department/agency should be addressed. If you have comments or
requirements of this proposal, please send them in writing to the assigned planner @
Development Services Department, 225 Fifth Street, Springfield, OR 97477. Your
comments may also be sent via e-mail or if you are a DRC internal user attach as
document within the Accela Automation.
If your written comments are not received by Friday, November 1, 2013 specific concerns of your
division/department/agency will not be addressed unless you attend the meeting on Tuesday, November 5, 2013. The
Development Review Committee holds staff review meetings on Tuesday @ 8:00-10:00 a.m. You should also plan to
attend the staff meeting on Tuesday if you have specific concerns so that the Planning representative can discuss them
prior to meeting with the applicant. If the Planner feels it is necessary for you to participate in the public meetings
he/she will let you know on Tuesday.
*full packet
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AGENDA
DEVELOPMENT REVIEW
COMMITTEE
DEVELOPMENT AND PUBLIC WORKS DEPARTMENT
225 FIFTH STREET
Conference Room 615
Staff Review: November 5, 2013 @ 9:00 a.m. — 10:00 a.m.
1. ZONING MAP AMENDMENT#TYP313-00006 SPFLD PUBLIC SCHOOLS 9:00 — 10:00 a.m.
Assessor's Map: 18-02-05-21 TL 8300
Address: 725 S 42nd Street
Existing Use: Educational: Kindergarten and Day Care/Nursery
Applicant submitted plans requesting zone change from Public Land and Open Space (PLO) to Low
Density Residential (LDR).
Planner: Mark Metzger
The DRC informational packet for this meeting is available on-line for you to review or
print out @ Laserfiche website: www.springfield-or.gov/weblink8/
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City of Springfield SPRINGFIELD
Development Services Department
225 Fifth Street
Springfield, OR 97477
lift, 416
Zoning Map Amendment, Type HI
Required Project Information (Applicant: complete this section)
Applicant Name: John Saraceno Phone: 541.726.3204
Company: Springfield Public Schools Fax: 54L726.9555
Address: 1890 42nd Street, Springfield, OR 97477
Applicant Signature: ',.b�f
And - II__ • °. •-•-•••
i \
Property Owner: - Dr. Hertica Y. Martin Phone: 541.726.3267
Company: Springfield Public Schools Fax: 541.744.6374
Address: 525 MiliStreet, Springfield, OR 97477
Owner Signature: 1 1
If the applicant is other than the owner, the owner hereby grants permission for the applicant to act in his or her behalf
ASSESSOR'S MAP NO: 18-02-05-21 TAX LOT NO(S): 8300
Property Address: 725 South 42nd Street, Springfield, OR 97478
Area of Request Square Feet: 156,816 Acres: 3.60
Existing Use(s)
of Property: Educational: Kindergarten and Day Care/Nursery
Description of
The Proposal: :.. . • .. :.. -.... -. • - .- •.•.• • • .
Land and Open Space (PLO) to Low-Density Residential (LDR), consistent with the
Eugene-Springfield Metropolitan Area General Plan designation of LDK.
Required Property Information (City Intake Staff: complete this section)
Received by:
Case No.: , e 1 3 -omw Date: 1C) A.;•/,'t r) (initials) _
Application Fee: r_.j IQ Postage Fee: 7 Total Fee: `t'S 2(
tab S ct
Date Received:
Edited 7/19/2007 bjones
OCT 162013
Original Submittal
. • •
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VICINITY MAP
'a TYP313-00006 Zoning Map Amendment
18-02-05-21 TL 8300
N 725 S 42" Street
Springfield Public Schools
• •
SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
Written Statement
1.0 PROJECT INFORMATION
Applicant's Request: The applicant, Springfield Public Schools, requests
approval of a Zoning Map Amendment from Public Land
and Open Space (PLO) to Low Density Residential (LDR) as
part of the disposition process for surplus properties.
Property Owner: Springfield Public Schools
525 Mill Street
Springfield, OR 97477
Applicant: John Saraceno
• Springfield Public Schools
525 Mill Street
Springfield, OR 97477
541.726.3204
iohn.saraceno @springfield.kl2.or.us
Applicant's Representative: Colin McArthur, AICP
Principal Planner
Cameron McCarthy
160 East Broadway
Eugene, OR 97401
541.485.7385
colin@cameronmccarthy.com
Project Name: Springfield Public Schools
South 42' Street Surplus Property
Subject Property: Assessor's Map 18-02-05-21
Tax Lot 8300
Location: 725 South 42nd Street
Springfield, OR 97478
• Property Size: 3.60 acres (156,816 square feet)
Total Development Area: N/A
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 1
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
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Plan Designation: Low Density Residential (LDR)
Plan Overlay Designation: N/A
Zoning Designation: Public Land and Open Space (PLO)
Overlay Zoning Designation: N/A
Development Issues Meeting: N/A
Associated Applications: N/A
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Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 2
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
2.0 DESCRIPTION OF PROPOSAL
2.1 Overview
Springfield Public Schools (SPS) ("the Applicant") requests approval of a Zoning Map
Amendment from Public Land and Open Space (PLO) to Low Density Residential (LDR) as
part of the disposition process for surplus properties.
2.2 Location
The property (site, subject site) is located entirely within the Eugene-Springfield Metropolitan
Area General Plan (Metro Plan) Boundary, Springfield's Urban Growth Boundary (UGB), and
Springfield city limits. At 3.60 acres (156,816 square feet), the site is identified on Lane
County Assessor's Map 18-02-05-21 as Tax Lot 8300. Exhibit B Vicinity Map shows the site as
located in southeast Springfield, abutting South 42"d Street, Mt. Vernon Road, and Booth
Kelly Road. The subject site is currently developed as a kindergarten and day care/nursery
educational use.
2.3 Purpose and Need
School District Needs
The request involves a Zoning Map Amendment change for one (1) parcel within Springfield
• city limits under the ownership of SPS. Proceeds from the sale of the subject parcel are
expected to allow SPS to continue to meet the needs of district constituents. In order to
facilitate the sale of surplus property, and to ready the parcel for development, a Zoning Map
Amendment to change the zoning from PLO to LDR is required. SPS has declared this parcel
as surplus property. The sale will also allow improved services through apportionment of
additional funds to current obligations or to areas SPS seeks to enhance by identifying
capital projects.
At the February 25, 2013 school board meeting, the 2012-2013 citizen-led Facilities Advisory
Committee (Advisory Committee) presented recommendations to the School Board to guide
the District as it considered a future bond measure to be placed on the November 5'h ballot.
The School Board voted unanimously in favor of the measure. The committee met eight (8)
times between November 2012 and February 2013 and was comprised of 26 community and
staff representatives. The committee was asked to focus on several topics and ultimately
submitted five (5) recommendations, including solutions that attend to the District's
instructional needs and capital needs of all District facilities.
A vast number of needs remains, those of which cannot be met with the current budget. The
2012- 2013 school year began with a Minor Capital Improvement Fund balance of $68,000
and a balance of$208,894.81 for other capital improvements, which does not begin to
address even the most urgent and unmet needs of the District's facilities, much less the
medium- to low- priority projects. These funds are not replenished annually but are
generated from the sale of surplus property and/or equipment. Once depleted, these funds
will no longer be available unless property or equipment is sold.
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Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 3
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
A priority of the Advisory Committee is to create more efficient schools to provide
comprehensive, basic education for Springfield students. The proposed bond thus addresses
many issues faced by Springfield schools:
• Inequitable access to educational technology that is intended to support learning for all
students;
• Outdated technology that inadequately prepares students for 213` Century careers; and
• Aging facilities which no longer adequately support the best practices in curriculum
design.
Projects to improve SPS facilities to undertake the above-stated concerns include
maintaining, repairing, and replacing buildings and building systems to extend their lifespan
and reduce operating costs. Twelve (12) of 21 schools are more than 50 years old, and six (6)
are more than 60 years old. The committee recognizes the importance of continuing to
invest in and maintain those buildings to ensure they remain viable school facilities. The
committee further recommended that improvements focus on the following areas: replace
portable classrooms with permanent structures, improve school security (e.g., Crime
Prevention through Environmental Design, security cameras and key card locks), improve
transportation infrastructure, and update athletic facilities.
Hamlin Middle School, built in 1957, has extensive maintenance issues. Its outdated and
failing electrical, storm water, potable water and heating systems can no longer support the
number of students enrolled or the instructional program. Despite the current facility's flaws,
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its location in the heart of Springfield and proximity to athletic fields, potential for co-
curricular improvements, and main Springfield thoroughfares make it an ideal school site.
Furthermore, the District's other three (3) middle schools are nearly at capacity, so Hamlin
students cannot simply be absorbed into Agnes Stewart, Briggs and Thurston Middle
Schools.
The adopted SPS 2013-2014 Operating Budget demonstrates that SPS has become
increasingly strategic as it decides where and how to invest its limited resources to best
serve students; those efforts are beginning to create positive momentum. Changes to student
enrollment have resulted in the closing of facilities in the SPS District. These changes have
left SPS with both vacant buildings and buildings that have successfully been filled by other
educational agencies, which in turn are representing rental income for the District. Principal
sources of local revenue are property taxes and earnings on investments. Under the
provisions of ORS 294.045, the District may invest money from any bond fund or surplus
funds in any of a list of investments approved by the State Treasurer and the Springfield
Public Schools Board of Directors.
Accordingly, the Advisory Committee recommended that the District maintain a "capital for
capital" strategy where funds raised through the sale of land or other properties are
dedicated to capital improvements. Under ORS 332.155(5), the School Board has authority to
sell any property of the District which in the judgment of the School Board will not be
required for school purposes (i.e., surplus property). Proceeds are intended to partially fund
the payoff of the Qualified School Construction Bonds (QSCB) when they come due.
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 4
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
Regional and Community Needs
Notwithstanding the direct needs of SPS, the requested amendment will achieve consistency
with the Metro Plan and provide opportunities for development under the range of uses
allowed by the LDR zoning. An additional benefit to the City from a policy standpoint is the
potential for meeting its residential land needs inside its UGB. Oregon specifies that
Springfield must fulfill State planning requirements by providing a 20-year supply of
residential land.
Springfield has capacity for 9,021 dwelling units within its existing UGB and will need to
provide approximately 5,920 dwelling units between 2010 and 2030 to accommodate growth
during this 20-year planning period. Nearly 60 percent (3,552) of these dwelling units will be
single family residential units. The proposed site can provide appropriate land for such
housing, as it is within Springfield's existing UGB as previously noted. Specific
characteristics of the site also demonstrate its suitability for such development. The
feasibility of development becomes greater with little to no land development constraints
(e.g., steep slopes, locally significant wetlands, or site contamination).
The Applicant's request for a Zoning Map Amendment is consistent with at least two (2) of
the City's stated goals under which it is developing its comprehensive plan:
• Promote compact, orderly, and efficient urban development by guiding future growth to
planned redevelopment areas within the established portions of the city;and
• • Balance the goals of accommodating growth and increasing average density within the
city with the goals to stabilize and preserve the established character of sound, older
neighborhoods.
A Zoning Map Amendment for this site will allow Springfield to achieve higher densities
closer to transportation corridors, where residents can access commercial services nearby.
These services are accessible by modes of transportation that do not necessitate automobile
use, Thus, approval of this request may allow Springfield to accommodate a range of
housing choices that are affordable, environmentally sound, and equitable when all costs are
accounted, for example:
• Infill housing and other uses allowed by LDR zoning may capitalize on existing
infrastructure available to its future residents, without having to force the City and its
residents to incur the short- and long-term costs of residential and infrastructure
expansion (Ref. Statewide Planning Goals 11 Public Facilities and Services and 14
Urbanization);
• Not all Springfield residents can afford nor do all prefer automobile ownership; and
• Potential reductions in automobile trips and/or trip distances, compared to expanding at
the periphery are likely to preserve natural areas and maintain air, land, and water quality
(Ref. Statewide Planning Goals 3 through 6: Agricultural Lands; Forest Lands; Natural
Resources, Scenic and Historic Areas, and Open Spaces; and Air, Water and Land
Resources Quality).
Equally important, as described in the second goal, is preserving the established character of
• older neighborhoods. A request for a Low Density Residential zoning classification, if
approved, will ultimately result in development that blends seamlessly with the existing,
LDR-zoned neighborhood. Though a specific development proposal is outside the scope of
this request, the intensity and character of development allowed under LDR zoning must
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 5
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION •
comply with development standards and design regulations consistent with said zone.
Therefore, projects anomalous in appearance and use are precluded from development
approval by way of Springfield City Code.
2.4 Land Use Requirements
The subject parcel is designated Low Density Residential (LDR) by the Metro Plan and is
zoned Public Land and Open Space (PLO) by the Springfield Development Code (SDC). The
parcel is located in Southeast Springfield. Springfield is working to update its Refinement
Plan (i.e., comprehensive plan). Accordingly, the site lies outside of Springfield's current
Neighborhood Refinement Plan boundaries, which provide land development policies at
greater specificity than the Zoning Map and Metro Plan.
Land Use/Transportation Connection
Upon approval, the proposed Zoning Map Amendment change will result in a zoning
designation (LDR) that is consistent with the plan designation (LRD). Therefore, Traffic
Impact Analysis (TIA) and corresponding traffic mitigation measures are not warranted and
do not apply to the proposal. The Transportation Planning Rule (TPR) requires local
governments to adopt an acknowledged Transportation System Plan (TSP). The TIA
assesses whether the improvements in the adopted TSP will adequately serve additional
traffic when a change in zoning occurs, even if existing conditions will not. If the analysis
finds that adequate planned capacity in the TSP is lacking, then the City must balance the
proposed land use that allows more traffic with the capacity of the transportation system.
IIIIII
SDC 4.2-105(A)(4) outlines the measures Springfield applies when accounting for such
impacts.
The Zoning Map Amendment request is consistent with the exceptions listed in Section 0060
of Oregon's TPR. These exceptions eliminate the requirement for a development proposal to
conduct a TIA that would otherwise apply to the proposal, thereby streamlining the
permitting process. The City may find that the Zoning Map Amendment does not
significantly affect an existing or planned transportation facility if three requirements are met
in Subsection 9 of TPR Section 0600. The proposed Zoning Map Amendment meets all three
exceptions and corresponding requirements. The Zoning Map LDR designation is consistent
with the Metro Plan LDR designation; it is consistent with the Urban Standards, Arterial
Capacity Improvements, and Bikeway System projects identified in the acknowledged and
adopted TSPs based on a review of the July 2002 TransPlan and the 2007 Regional
Transportation Plan (RTP) (the Springfield TSP is currently in draft form); and the site is not
subject to an urban growth boundary amendment at the time of this request.'
Land Use/Natural Features and Environmental Quality Connection
FEMA Floodplain Map 41039C1162F shows the subject parcel to be located entirely outside
the 500-year floodplain.2 The subject parcel lies outside the Drinking Water Protection
Overlay District, all four (4) Time of Travel Zones, and City-designated Zones of
Concentration boundaries as specified at SDC 3.3-200 and the Wellhead Protection Area Map
1 http://www.oregon.gov/LCD/docs/rulemaking/2009-11/tpr/tpr_amendments-summary-text.pdf. Page 10. •
2 Applicable Code: Sections 3.3-400; 5.17-1251D).
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 6
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
prepared by the City's Development & Public Works Technical Services Division and
Springfield Utility Board (SUB).3 The subject parcel contains no jurisdictional wetlands.
2.5 Summary of Request
As described above, this proposal is a request for a Type Ill, Quasi-Judicial, Zoning Map
Amendment as specified at SDC 5.22-100. Findings demonstrating consistency with
applicable SDC policies, approval criteria, and provisions are provided in Section 5 Approval
Criteria. The attached materials and enclosed findings demonstrate compliance with all
Zoning Map Amendment application submittal requirements and criteria listed at SDC
Sections: 5.22-100 Zoning Map Amendments; and 5.4-100, Development Applications.
• 3 Springfield Development& Public Works Technical Services Division;Springfield Utility Board. (January 2013).
Wellhead Protection Areas: Time of Travel Zones (February 2008 Delineations)and Contaminant Source
Inventory.
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SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42N0 STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
3.0 EXISTING CONDITIONS
3.1 Soils
The existing soils at the site include: Salem-Urban Land complex (57%); Oxley-Urban Land
Complex (23%); and Coburg-Urban Land Complex (19%). The Coburg-Urban Land Complex
covers the southwest corner of the site. Conversely, the Oxley-Urban Land Complex lies on
the site's northeastern corner.
3.2 Urban Services
Lane Transit District's (LTD) bus route 11 runs less than a mile away along Main Street every
half-hour, each day of the week. Also within a 1-mile distance are shopping and dining
opportunities. Nearby parks and open space (within 1 mile or less) include Volunteer Park,
Bluebelle Park, and Pride Park. Douglas Gardens Elementary School, Mt. Vernon Elementary
School, McKenzie Montessori Institute, and Agnes Stewart Middle School are within 1 mile of
the site. Maple Elementary School, Riverbend Elementary School, Thurston Middle School,
and Thurston High School are less than 2.5 miles from the site.
3.3 Urban Facilities (Utilities and Infrastructure)
Future property owners will determine the precise locations of and connections to service
• lines and cables, extension of water and sewer service, and construction of access
improvements as redevelopment occurs, commensurate with the scale of proposed
development. A review of Springfield's current- and long-range planning documents, written
and implemented to support existing and future development with infrastructure
maintenance and improvements, includes the: City of Springfield, OR Capital Improvement
Program:A Community Reinvestment Plan (GIP) (2013-2017 and 2014— 2018); Wastewater
Master Plan; City of Springfield Storm water Facilities Master Plan (2008); Eugene-Springfield
Metropolitan Area Public Facilities and Services Plan (PSFP) (2011 update), and several
transportation plans. The current levels of operation of Springfield's publicly-provided
infrastructure that serve the site are sufficient for the neighborhood surrounding the site and
are therefore sufficient for the proposed zoning as described in detail under section 5.1
Zoning Map Amendment Criteria.
Stormwater
Stormwater facilities are present along the southern and western portions of the site. On or
adjacent to the site are nine (9) stormwater basins, with the furthest basin provided just
across Mt. Vernon Road. City-maintained PVC and conduit stormwater mains run along
South 42"d Street and Mt. Vernon Road. South 42"d Street contains approximately 2,740 feet
of stormwater mains and service lines that are 18 square feet in diameter. An 8-square foot
line runs through Mt. Vernon Road for approximately 1,267 feet. The stormwater facilities on
Mt. Vernon Road connect to lines that run southward under South 44th Street.
Wastewater
The City's Wastewater Master Plan shows an existing major ("main") wastewater system
pipe approximately 590 feet away from the southernmost point of the site (Figure ES-1). The
Main Street Trunk Sewer is just a half-mile away to support infill and residential development
that may require service lines.
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION •
Existing sanitary sewer mains are on-site and are immediately adjacent to the southern and
western boundaries of the site. Connecting to Mt. Vernon Road, the on-site conduit facility is
70 feet in length. Along South 42"d Street adjacent to the site are two (2) connection points.
One (1) point extends in a southerly direction, providing nearly 471 feet of available facilities,
and the other extending northward for approximately 1,091 feet, until reaching Daisy Street.
Along the entire frontage of the site, a main runs through Mt. Vernon Road for approximately
1,136 feet. This facility connects to South 42"d, 43`d, and 44th Streets.
Transportation
The roads surrounding the site are classified as Urban Local and Urban Minor Collector until
Daisy Street and Jasper Road (Urban Major Collectors) serve as a connection to these roads
to the north and to the south, respectively. South 42"d Street runs adjacent to the site's
property line to the west in northerly and southerly directions. To the north is Booth Kelly
Road, and to the south is Mt. Vernon Road. Main Street, just over a half-mile to the north, is
easily accessible from these roads by vehicle. A continuous 5- to 10-foot sidewalk and
bicycle lane run the entire length of South 42"d Street adjacent to the site and continue to
Main Street, where a sheltered LTD bus stop is at the intersection of South 42"d Street and
Main Street on the southeast corner.
S
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 10
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
4.0 SUBMITTAL REQUIREMENTS
Described below are each of the required procedural and information requirements
necessary for the submittal of a Zoning Map Amendment request. Findings of compliance
with applicable policies, approval criteria, and provisions are provided in Section 5 Approval
Criteria.
4.1 Zoning Map Amendment Submittal Requirements
.1 Application Fee- Refer to the Development Code Fee Schedule for the
appropriate application and postage fee. A copy of the Fee Schedule is
available at the Development Services Department.
The required filing fee of$5,821.90 is enclosed with the submittal.
.2 Deed - A copy of the deed to show ownership.
A copy of the Deed is included as Exhibit A.
.3 Vicinity Map—A map of the property and the surrounding vicinity which
includes the existing zoning and plan designations. One copy must be
reduced to 8 1/2" by 11" which will be mailed as part of the required
neighboring property notification packet.
•
The Vicinity Map for the request is provided as Exhibit B and is printed as 8.5" by 11".
.4 Findings - Before the Planning Commission can approve a Zone/Overlay
District Change Request,there must be information submitted by the
applicant which adequately supports the request. The Criteria the Planning
Commission will consider in making their decision is listed below. If
insufficient or unclear data is submitted by the applicant, there is a good
change that the request will be denied or delayed. It is recommended that
you hire a professional planner or land use attorney to prepare your
findings.
Criteria of Approval (Quasi-Judicial)
SDC 12.030 requires that in reaching a decision on these actions,the
Planning Commission or Hearings Official map approve, approve with
conditions or deny a quasi-judicial Zoning Map amendment based upon
approval criteria (a)-(c), below.
(a) Consistency with the Metro Plan policies and the Metro Plan Diagram;
(b) Consistency with applicable Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans; and
• (c) The property is presently provided with adequate public facilities,
services and transportation networks to support the use, or these
facilities, services and transportation networks are planned to be
provided concurrently with the development of the property.
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 11
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
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The preceding written narrative explains the request and includes information relevant to
determining future action. Findings of compliance with applicable criteria and provisions are
provided in Section 5.1 Approval Criteria.
III
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Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 12
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
5.0 APPROVAL CRITERIA
This request involves a Zoning Map Amendment for one (1) tax lot within Springfield city
limits that SPS has identified as surplus property. A request for a Zoning Map Amendment
under Springfield Development Code (SDC) is subject to approval criteria beginning at SDC
5.22-115. Findings of compliance that establish the consistency of this request with the
applicable approval criteria and provisions are provided below.
5.1 Zoning Map Amendment Criteria (SDC 5.22 -115)
The Applicant acknowledges the need for consistency with a variety of plans that are
applicable to the City of Springfield and to the entire metropolitan area. The findings below
address timing, appropriateness, and availability of services and accompany the Zoning Map
Amendment Application form. As presented under SDC 5.22-115, criteria (A) and (B) are not
criteria specifically listed as approval criteria; approval criteria begin at criterion (C). The
request addresses criteria (A) and (B), as they are listed under the section entitled "Criteria."
The findings under these criteria provide context for the specific approval criteria addressed
under subsection (C).
A. Quasi-Judicial Zoning Map Amendments. The Planning Commission or Hearings
Official may approve, approve with conditions or deny a Quasi-Judicial Zoning
Map amendment based upon approval criteria C.1. through 3., below. The
Planning Commission or Hearings Official shall make the final local decision on all
Quasi-Judicial Zoning Map Amendments that do not include a Metro Plan
diagram amendment.
Quasi-Judicial Zoning Map Amendments involve the application of existing policy to a
specific factual setting, generally affecting a single or limited group of properties and may or
may not include a Metro Plan diagram amendment. This request satisfies the description of
a Quasi-Judicial process for Zoning Map Amendments, as the subject site is not proposed for
subdivision and has Springfield Public Schools as its sole owner. The following narrative
acknowledges all four (4) approval criteria but is only responsible for demonstrating findings
consistent with criteria C.1 though C.3 (below) in its request for a Zoning Map Amendment
from PLO to LDR. A Metro Plan diagram amendment determination is not submitted nor is it
required; the existing Metro Plan designation is LDR.
B. Legislative Zoning Map Amendments and Quasi-judicial Zoning Map
Amendments Raised to a Type IV Review. The Planning Commission or Hearings
Official may make a recommendation to the City Council to approve, approve
with conditions or deny Zoning Map Amendments and Metro Plan diagram
amendments based upon approval criteria in Subsection C. 1. through 4., below.
The City Council shall make the final local decision on all Zoning Map
Amendments involving a Metro Plan diagram amendment.
A Metro Plan diagram amendment determination is not required, as the existing designation
is LDR. Findings under criterion C.1 (criterion (C), subsection 1) discuss the compatibility of
the parcel's existing LDR Metro Plan designation and the proposed Zoning Map Amendment
change to LDR. Elevation to a Type IV review procedure is therefore unwarranted.
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C. Zoning Map Amendment Criteria of Approval:
1. Consistency with applicable Metro Plan policies and the Metro Plan diagram;
The Metro Plan Diagram is:
"... an arrangement of[goals, objectives, and recommendations found
elsewhere in the Metro Plan, and of]existing, and to an even greater degree,
projected land uses... " (Page 11-G-1).
Further:
"Used with the text[of the Metro Plan]and local plans and policies, they
provide direction for decisions pertaining to appropriate reuse
(redevelopment), urbanization of vacant parcels, and additional use of
underdeveloped parcels... " (Pages 11-G-2 and 11-G-3, Residential Category).
An inconsistency exists between the Eugene-Springfield Metropolitan Area General Plan
(Metro Plan) and Springfield's zoning of the subject parcel. The Metro Plan Diagram (Policy
Framework G) shows the underlying Metro Plan designation for all subject parcels as Low
Density Residential (LDR). This inconsistency between Plan and Zone designations does not
infer incompatibility, as Springfield's Zoning Map classifies the parcel as Public Land and
Open Space (PLO). Uses allowed by PLO are considered "compatible" with LDR Plan
designations only if they can demonstrate compliance with refinement plans, zoning
ordinances, and other local controls for allowed uses in residential neighborhoods.' Taken
literally, "compatible" does not mean "consistent."
Policy A.2: Residentially designated land within the UGB should be zoned
consistent with the Metro Plan and applicable plans and policies; however,
existing agricultural zoning may be continued within the area between the city
limits and the UGB until rezoned for urban uses.
PolicyA.2, consistent with Oregon Statewide Planning Goals as required by State law, makes
apparent that the Metro Plan is the overriding document when an inconsistency exists
between a city's parcel-specific Zoning Map and the Metro Plan (in most instances).5 The
proposed Zoning Map Amendment requests rezoning of the subject parcels from PLO to
LDR, consistent with a Metro Plan designation of LDR. Thus, this policy element of the Metro
Plan is satisfied.
Eugene-Springfield Metropolitan Area General Plan, 2004 Update. Pages II-G-3 and III-C-1.
•
OAR 660-015-0000(2). http:/lwww.oregon.gov/LCD/docslgoals/goal2.pdf. Oregon Statewide Planning Goal 2:
Land Use Planning.
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Growth Management Influences the Provision of Publicly Provided Infrastructure
In recognition of Oregon Statewide Planning Goal 14,6 the Plan's Metropolitan Goal: Growth
Management, sets forth the provision to use urban, urbanizable, and rural land in an efficient
manner. The Metro Plan also stipulates that future development "...encourage orderly and
efficient conversion of land from rural to urban uses in response to urban needs, taking into
account metropolitan and statewide goals."' In so doing, the Metro Plan confirms this
proposal's consistency with said provisions; the proposed site location satisfies the following
finding on page 1-8 and the following statement on page II-C-1 of the Plan, as it is within
Springfield's UGB:
Finding: Orderly metropolitan growth cannot be accomplished without
coordination of public investments. Such coordination can be enhanced
through use of the 'Public Facilities and Services Plan'and scheduling of
priorities.
Statement: To effectively control the potential for urban sprawl and scattered
urbanization, compact growth and the urban growth boundary (UGB) are, and
will remain, the primary growth management techniques for directing
geographic patterns of urbanization in the community. In general, this means
the filling in of vacant and underutilized lands, as well as redevelopment inside
the UGB.
• The proposed site is already developed but is best-suited for redevelopment given the
school's deteriorating conditions. Demolition and redevelopment on the same parcel
satisfies not only the requirement for preventing haphazard expansion of the UGB but also
demonstrates that development on this area will be a logical, efficient extension of urban
services that already serve the site. This proposal therefore acknowledges Metro Plan
Finding 2, items (a), (b) and (d):
Finding 2: Beneficial results of compact urban growth include:
a. Use of most vacant leftover parcels where utilities assessed to abutting
property owners are already in place.
b. Protection of productive forest lands, agricultural lands, and open space
from premature urban development.
d. Decreased acreage of leapfrogged vacant land, thus resulting in more
efficient and less costly provision and use of utilities, roads, and public
services such as fire protection.
Adequate public facilities and services are available to the site by way of its location, as the
site is within Springfield city limits and is therefore within Springfield's UGB. Land within
city limits is urbanizable by definition in the Statewide Planning Goals that embody the
Oregon Administrative Rules. Goal 14 explains: "Land within [UGBs] shall be considered
available for urban development consistent with plans for the provision of urban facilities
6 Implementing legislation: OAR 660-015-0000(14).
LCOG. (2004). Eugene-Springfield Metropolitan Area General Plan. Page II-C-1.
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40
and services. Comprehensive plans [e.g., the Metro Plan and the Springfield 2030
Refinement Plan] and implementing measures shall manage the use and division of
urbanizable land to maintain its potential for planned urban development until appropriate
public facilities and services are available or planned."
Pages II-C-1 through II-C-8 of the Metro Plan set out the Growth Management goals, findings,
and policies. Of the remaining policies, two (2) (presented below in italics) are relevant to the
request:
Policy C. 1: The UGB and sequential development shall continue to be
implemented as an essential means to achieve compact urban growth. The
provision of all urban services shall be concentrated inside the UGB.
Policy C.17 (Page 11-C-6): Eugene and Springfield and their respective utility
branches, Eugene Water& Electric Board (EWEB) and Springfield Utility Board
(SUB), shall be the water and electrical service providers within the UGB
(similar to Policy G.9 of Page 111-G-5).
The proposed site is within Springfield city limits, and accordingly, Springfield's UGB. As
previously noted, it is thus within an area that is planned for expansion and redevelopment,
as the UGB defines the extent of urban building and service expansion over the planning
period. Future development, if desired by future owners, will require minimal extension of
services. SUB provides utility and water service within Springfield city limits. Lastly, Policy
C.1 (above) provides reason for the findings addressing this policy to connect well with the
policies set forth in the Public Facilities and Services Element that are relevant to the request.
Pages III-G-1 through III-G-15 of the Metro Plan set forth the Plan's Public Facilities and
Services Element. As stated on page III-G-1, "the policies in this element complement Metro
Plan Chapter II-A, Fundamental Principles, and Chapter II-C, Growth Management." This
request addresses Chapter II-C when explaining that all required development features will
remain in the UGB in order to allow Springfield and the entire metropolitan area to develop a
"timely, orderly, and efficient arrangement of public facilities and services..." The following
policies that do not specifically address governmental action are potentially relevant to the
subject request. These two (2) policies in the Public Facilities and Services Element serve
similar purposes and address the holistic intent of the Metro Plan:
Policy G.1: Extend the minimum level and full range of key urban facilities and
services in an orderly and efficient manner consistent with the growth
management policies in Chapter ll-C, relevant policies in this chapter, and other
Metro Plan policies.
Policy G.2: Use the planned facilities maps of the Public Facilities and Services
Plan to guide the general location of water, wastewater, storm water, and
electrical projects in the metropolitan area. Use local facility master plans,
refinement plans, and ordinances as the guide for detailed planning and project
implementation.
•
Oregon Statewide Planning Goal 11: Public Facilities and Services. (ORS, 197.298.)
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The following plans guide the provision of urban services to the project area. They address
Policies G.1 and G.2 and are the basis for the Zoning Map Amendment request and any
future improvements that are proposed by subsequent property owners:
• City of Springfield. The City of Springfield, Oregon Capital Improvement Program: A
Community Reinvestment Plan (2013-2017);
• City of Springfield. The City of Springfield, Oregon Capital Improvement Program: A
Community Reinvestment Plan (2014-2018);
• City of Springfield. Stormwater Facilities Master Plan (October 2008);
• Lane Council of Governments (LCOG). TransPlan (2002);
• Draft Springfield TSP(2013 update); and the:
• Eugene-Springfield Metropolitan Area Public Facilities and Services Plan (2011 update).
This request conforms to all Metro Plan Factors that the Urban Growth Boundary section in
the Metro Plan's Policy Framework G: Metro Plan Diagram specifies by way of compliance
with the above stated Metro Plan policies (Pages II-G-12 through II-G-14). The Metro Plan
Factors and corresponding "results," as stated on Page II-G-12, explain the intent of the UGB
and the effects of this intent. Because the Factors and results of this section address
development within the entire UGB (emphasis added), this request's conformance to the
following Factors, and, accordingly, to these relevant Policies in sections III-C and III-G, is
achieved by its location fully within the UGB.
• • Factor 6.1: "Demonstrated need to accommodate long-range urban population
growth requirements consistent with LCDC goals;"
• Factor G.2: "Need for housing, employment opportunities, and livability;"
• Factor G.3: "Orderly and economic provision for public facilities and services;"
• Factor G.5: "Environmental, energy, economic, and social consequences;"and
• Factor G.6: "Retention of agricultural land... "
Pages II-E-1 through II-E-2 establish for the need to allow for orderly Urban and Urbanizable
Land. Page 11-E-1 provides steps so that such development may occur:
"The actual annexation and rezoning of the land (with accompanying public hearing
processes, including Lane County Local Government Boundary Commission
approval)."
"Extension of public capital improvements (in accordance with programming and
funding availability)."
This request presents an opportunity for a change in zoning such that redevelopment will not
result in leapfrogging land use patterns to areas with little to no potential for urban growth to
expand to the site. Its appropriateness for infill development will maximize the efficiency of
existing services, as it is within city limits and is near sites and major transportation corridors
that already support the needs of the greater area, those of which required a substantial
investment to provide adequate infrastructure to those uses (e.g., South 42nd Street).
Moreover, existing and future single family housing in close proximity to the site may share
the benefits of future development should development on the parcel require utility
improvements or new connections to public infrastructure in the future, as low density
residential land use designations lie adjacent to the entire site.
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Further measures to ensure the adequate provision of public services to the site will result
from specific development proposals from future property owners. As previously noted, SPS
intends to facilitate development of this surplus property though rezoning and disposing it to
interested parties thereafter, at which point future owners will develop specific proposals for
the site. Determining precise locations of future connection points to existing infrastructure
and any additional infrastructure required to support a use allowed under LDR zoning are
outside the scope of this request. It is expected that a site assessment of existing conditions
(e.g., a public utility survey) that evaluates sanitary water, power, and storm sewer, sanitary
sewer, and streets and traffic safety as required by other land use approvals (e.g., Site Plan
Review) and as required by the building permit and inspection process will occur to inform
an existing improvement and public utilities plan and/or a grading, paving, and utilities plan
at the time development is proposed or as otherwise necessary.
In addition to the findings incorporated throughout the Zoning Map Amendment approval
criteria, several urban services are also an indication that adequate facilities are available to
the site. Lane Transit District's (LTD) bus route 11 runs along Main Street less than a mile
away and approximately every half-hour during each day of the week. Nearby parks, open
space, and schools (within 1 mile or less) include: Volunteer Park, Bluebelle Park, and Pride
Park. Douglas Gardens Elementary School, Mt. Vernon Elementary School, McKenzie
Montessori Institute, and Agnes Stewart Middle School are within 1 mile of the site. Maple
Elementary School, Riverbend Elementary School, Thurston Middle School, and Thurston
High School are less than 2.5 miles from the site.
Regarding emergency services, an Intergovernmental Agreement between Eugene and
Springfield ensures the provision of fire and emergency medical services to the site. Police
services continue to serve the site and surrounding area through the City of Springfield.
Growth Management and Land Supply Influence Urbanization
Urbanization accounts for more than acreage when determining how a local jurisdiction can
provide adequate public facilities in a timely and cost-effective manner. Demographic trends,
such as population projections, together with an accurate assessment of buildable acres in
accordance with Springfield's land use policy also informs the extent of urbanization and the
land use pattern that exists within its UGB.
Policy A.3: Provide an adequate supply of buildable residential land within
the UGB for the 20-year planning period at the time of Periodic
Review (Metro Plan, Ill-A-5).
Policy A.4: Use Annexation, provision of adequate public facilities and services,
rezoning, redevelopment and infill to meet the 20-year projected housing
demand.
Though directed at local governments, adequate public facilities and services are available to
support this proposal according to the above stated policies. This request for residential
zoning initiates rezoning of the subject site where redevelopment and infill will occur,
commensurate with a portion of the housing required to meet the projected housing demand
for the 20-year planning period.
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Lane County adopted coordinated population forecasts for the County and its incorporated
cities in June 2009. The forecasts include figures for Springfield for 2010 and 2030.9 In June
2011, the City of Springfield adopted an ordinance amending the Metro Plan to adopt the
Springfield 2030 Refinement Plan Residential Land Use and Housing Element and to
establish a separate Springfield Urban Growth Boundary pursuant to ORS 197.304.1° The
ordinance included the Springfield Residential Land and Housing Needs Analysis (RLHNA),
adopted as a technical supplement to the Refinement Plan, which is an "analysis of land
supply and housing demand prepared for the City of Springfield by ECONorthwest (ECO) that
incorporates input from citizens, stakeholder groups, commissions, and elected officials
received throughout a multi-year citizen involvement process that included a Residential
Lands citizen advisory committee, online public surveys, community workshops, work
sessions, open houses and public hearings."
ECO's RLHNA shows the coordinated population forecast for the Springfield city limit and the
UGB for 2010 to 2030. The forecast for the population within the Springfield city limits is
74,814 persons for 2030—an increase of 15,923 persons over the 20-year planning period.
The UGB forecast for 2030 is 81,608 persons—an increase of 14,577 persons during the same
period." The City of Springfield's 2030 Refinement Plan and array of public facilities plans
account for these studies by ECO; future services show support for accommodating future
housing.12
According to the RLHNA, Springfield has a 378-acre surplus of Low Density Residential land,
• a 76-acre surplus of Medium Density Residential land, a 28-acre deficit of High Density
Residential Land, and a 300-acre deficit of Parks and Open Space Land.13 In regard to the
Parks and Open Space deficit, the technical analysis states:
"The Parks and Open designation has a deficit of 300 acres. This need does not imply
that the City should expand the UGB for parks and open space. The City has a surplus
of buildable lands in the low and medium density residential plan designations that
can provide land for future parks within those designations... A portion of the parks
and open space need can also be met on residentially designated land that has
constraints and therefore is not counted as buildable acres (e.g., ridgeline trail
systems). Since no surplus of land designated for high density residential uses exists,
the 21-acre high density residential plan designation deficit has been increased by (7)
9 ECONorthwest. (2009). Draft Springfield Residential Land and Housing Needs Analysis. Map 3-3: Residential
Land by Classification,City of Springfield, Oregon.
1D City of Springfield. Ordinance 6268. June 11,2011.
11 Ibid.Table 5.1: Springfield Coordinated Population Forecast, Springfield UGB,2010 to 2030. This table
references the Lane County Rural Comprehensive Plan, 1984 (Amended in 2009),Table 1-1. Page 5.
12 (a) City of Springfield. The City of Springfield, Oregon Capital Improvement Program:A Community
Reinvestment Plan;2013-2017.
(b) City of Springfield. (October 2008) Stormwater Facilities Master Plan.
(c) These studies are consistent with the Metro Plan's Policy Framework G: Metro Plan Diagram (page II-G-1)
and with Policies A.35 and A.37 (Metro Plan, page III-A-13).
12 ECONorthwest. (2011). Springfield Residential Land and Housing Needs Analysis. Table S-5 Reconciliation of
land need and supply, Springfield UGB 2010.
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acres to provide for parkland immediately adjacent to the proposed high density
residential district"' (emphasis added).
As discussed above, the technical analysis identifies a deficit of land in the Parks and Open
Space designation and includes an estimate of future land needs. The projected deficit of
357 acres in the RLHNA falls within the estimated surplus of buildable land remaining in the
UGB for residential use in Springfield by 2030. To support both residential needs and needs
for open space, Statewide Planning Goal 8 allows cities and park districts to acquire land for
park uses outside of urban growth boundaries. Consistent with Statewide Planning Goal 8 is
the following Metro Plan Finding, which supports the Metro Plan's goals for urbanization and
efficient land development patterns:
While development and in-filling have decreased the amount of open space
(and associated vegetation and wildlife habitat) within the urban service area,
the compact urban growth form has protected open space on the urban fringe
and in rural areas within the Plan Boundary (Finding 15, Goal 5 Open Space,
Environmental Resources Element).
The aforementioned plans and studies are periodic in nature and are thus in accordance with
the following Oregon Administrative Rules when recognizing updates to plans and studies in
order to address community needs as they change:
• OAR 660-024-0030: Population Forecasts (Stat. Auth.: ORS 197.040);
• OAR 660-024-0040: Land Need (Stat. Auth.: ORS 197.040); and
• OAR 660-025-0070: Need for Periodic Review (Stat. Auth.: ORS 197.040 & 197.633).
Willamalane Park and Recreation District (WPRD) manages many of Springfield's parks and
open space areas. It maintains and operates 5 recreation facilities and 38 parks and open
spaces that make up almost 1,000 acres. WPRD also offers hundreds of recreation programs
to more than 60,000 patrons. WPRD is a special tax district, separate from the city of
Springfield, with its own boundaries. Its service district boundary and planning area extend
outside the Springfield UGB in some areas. However, the majority of future parkland is
expected to come from areas within the UGB that are residentially designated land (not
already PLO-zoned and used for educational purposes), a portion of which is land that has
constraints and therefore is not counted as buildable acres (emphasis added).
Urbanization Influences Land Use and Transportation
The manner in which the Metro Plan is written allows the intent of policies in one chapter to
help achieve goals and comply with policies in other chapters. Some policies, rather than
being exclusive to their respective sections in the Metro Plan, are better read and analyzed in
the context of how well they fit with policies in its other chapters. The expected outcomes of
this proposal achieve an overall vision, that of which the Metro Plan disaggregates into
separate topics including, but not limited to, land use and transportation. Thus, the findings
below may be held against a set of Residential Land Use and Housing policies and
Transportation policies that serve a similar purpose.
•
Ibid. Page v.
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Pages III-A-1 through III-A-13 of the Metro Plan establish the Residential Land Use and
Housing Element goals, findings, and policies. Of the remaining policies, two (2) (presented
below in italics) are relevant to the subject request. Of the policies set forth in the Metro
Plan's Transportation Element (Pages III-F-1 through III-F-14), one (1), presented below in
italics, is relevant to the subject request. Taken together, these policies state:
Policy A.10: Promote higher residential density inside the UGB that utilizes
existing infrastructure, improves the efficiency of public services and facilities,
and conserves rural resource lands outside the UGB.
Policy A.13: Increase overall residential density in the metropolitan area by
creating more opportunities for effectively designed in-fill, redevelopment, and
mixed use while considering impacts of increased residential density on
historic, existing and future neighborhoods.
Policy F.26: Provide for a pedestrian environment that is well integrated with
adjacent land uses and is designed to enhance the safety, comfort, and
convenience of walking.
By proposing to accommodate a portion of Springfield's growing population on a
developable infill site, this project simultaneously brings Springfield closer to achieving its
housing, urbanization, transportation, and environmental objectives. The resulting land use
pattern, also providing a transit-supportive land use pattern, will uphold the Metro Plan
Diagram and text such that it will not "leapfrog" but instead result in a higher gross
residential density that represents a logical network of urban services. This request
exemplifies compact and efficient residential growth in appropriate locations to maximize the
use of existing public facilities and services; to preserve outlying rural, agricultural, and
natural resource land, and to protect air and water quality.15 In addition, nearby dining
venues, commercial and retail centers, and transit facilities are within walking distance of the
site and serve residents' daily needs to support the local economy."
Potential future development as a result of a Zoning Map Amendment is fitting for the area
when also considering the level of activity and the scale of development as means to address
intensity. Future development shall be well-integrated with the area, as future development
will be subject to SDC Base Zone Development Standards within the LDR Zone. An LDR zone
(as proposed) and LDR designation (existing) blend seamlessly with the surrounding
properties. The proposed Zoning Map Amendment and future development will allow the
neighborhood surrounding the site to preserve its character with the SDC provisions that
inform the site development standards and building design. In contrast to other zones, LDR
is not intended to generate the type of traffic and noise expected by industrially- or
commercially- zoned parcels. Therefore, an approved Zoning Map Amendment will facilitate
an appropriate transition of physical scale and use (intensity).
76 Lane Council of Governments (LCOG). (2004). Eugene-Springfield Metropolitan Area General Plan. Page III-A-7.
15 Ibid. Pages III-F-2 and F-3,and Policy F.3.
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Land Use and Transportation Influence the Natural Environment
Pages III-C-1 through III-C-16 set out the policies pertaining to the Plan's Environmental
Resources Element. Many of these policies are directed to local governments rather than to
individual property owners or to the use of individual properties. The Plan's Riparian
Corridors, Wetlands, and Wildlife Habitat ([Statewide Planning) Goal 5) section and Air,
Water, and Land Resources Quality ([Statewide Planning] Goal 6) section apply to this
proposal. Of the potentially relevant policies to the subject request within the Air, Water, and
Land Resources Quality section, one (1) addresses considerations that the Applicant (and,
accordingly, this proposal) undertook throughout the application process:
Policy G.15: Consider wellhead protection areas and surface water supplies
when planning storm water facilities.
Policy G.16: Manage or enhance waterways and open storm water systems to
reduce water quality impacts from runoff and to improve storm water
conveyance.
Noting the area's location outside of water and drainage protection areas, several factors
demonstrate that potential future development facilitated by this Zoning Map Amendment
request will protect vegetation, natural water features, and drainage systems to the
maximum extent practicable: (1) the subject site is not located in a groundwater
management area; and, (2) the subject site lies outside of the Drinking Water Protection
Overlay District according to the Wellhead Protection Area Map prepared by the City and
11111
SUB." Future development will be required to conform with SDC 4.4-105 and Specific
Development Standards as specified in SDC 4.7-200, 4.7-203, and SDC 4.7-205; to manage
stormwater and drainage in order to relieve demand on the City's piped drainage system; to
alleviate future costs of treating the piped discharge; to promote water quality; to preserve
groundwater and the vegetation and rivers it supports; and, to reduce peak storm flows.
This criterion is satisfied to the maximum extent practicable.
2. Consistency with applicable Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans; and
Refinement Plans and Plan Districts
The site is not within an area subject to an adopted refinement plan. This element of this
criterion does not apply. However, the site lies just south of the East Main Refinement Plan,
whereby these refinement plan requirements extend to Booth Kelly Road. The compatibility
of this request with the East Main Refinement Plan boundary, immediately adjacent to the
site, is demonstrated by way of existing and proposed land designations. Consistent with
this request for a Zoning Map Amendment from PLO to LDR, the southern portion of the East
Main Refinement Plan is designated as LDR. The extent of the LDR designation runs at a
substantial width for 750 to 1,000 feet north from the site, on average. The site also lies
" Springfield Public Works Department,Technical Services Division. (September 2011). Wellhead Protection
Areas: Time of Travel Zones (February 2008 Delineations)and Contaminant Source inventory. Applicable Code:
Section SDC 13-200.
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outside the Glenwood Riverfront District and Booth-Kelly Mixed Use Plan District boundaries.
These two Plan Districts are the only established Districts per SDC 3.4-100 Plan Districts.
Conceptual Development Plans and Functional Plans
Notwithstanding the above-stated requirements, conceptual development plans and
functional plans reveal the appropriateness of an LDR-zoned parcel. The set of adopted
(emphasis added) plans applicable to the site are the:
• Eugene-Springfield Metropolitan Area Public Facilities Services Plan (PSFP);
• Central Lane Metropolitan Planning Organization Regional Transportation Plan (RTP)
(2007);
• Lane Council of Governments Eugene-Springfield Transportation System Plan
(TransPlan) (2002); and the
• City of Springfield 2014-2018 Capital Improvement Program:A Community Reinvestment
Plan.
These plans are fundamental to the findings under the second criterion of approval, below.
While considered refinement plans, they are also intended as system facilities plans that
guide local and regional development in the Eugene-Springfield Metropolitan Area. Thus,
the findings addressing the second criterion of approval are incorporated by reference herein
as demonstration that: (1) this sub-criterion under the first criterion of approval is met; and
(2) as partial demonstration that this first criterion of approval in its entirety is met.
S The above findings together with the narrative and documentation submitted herewith
demonstrate that this criterion has been met to the greatest extent possible.
3. The property is presently provided with adequate public facilities, services
and transportation networks to support the use, or these facilities, services
and transportation networks are planned to be provided concurrently with
the development of the property.
Acknowledgement of pages III-G-1 through III-G-15 of the Metro Plan and page III-G-1,
whereby: "The policies in this element complement Metro Plan Chapter II-A, Fundamental
Principles, and Chapter II-C, Growth Management," demonstrates that all required
development features will remain in the UGB in order to allow Springfield and the entire
metropolitan area to develop a "timely, orderly, and efficient arrangement of public facilities
and services..."'g
As demonstrated herein in the above findings under the first criterion of approval, the
proposed site is within Springfield city limits, and accordingly, Springfield's UGB. It is thus
within an area that is planned for expansion and redevelopment, as the UGB defines the
extent of urban building and service expansion over the planning period. Page eight (8) of
the PSFP, a refinement plan that is a supporting element of and is internally consistent with
0
'S Oregon Statewide Planning Goal 11: Public Facilities and Services. (ORS 197.298.)
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
the Metro Plan by identifying significant19 facility projects that satisfy the policies established
in the Metro Plan, states: "Consistent with the principle of compact urban growth prescribed
in Chapter II, the policies in this element call for future urban water and wastewater services
to be provided exclusively within the urban growth boundary. This policy direction is
consistent with Statewide Planning Goal 11." Regulating new development on urban lands,
the PSFP requires that it must be served by the minimum level of key urban services at the
time development is completed. This requirement is thus consistent with Metro Plan Chapter
II-A: Fundamental Principles and Chapter II-B Growth Management.
This request complements the Metro Plan's and Springfield's effort to coordinate their long-
range planning approaches for the provision of needed facilities and services in the
metropolitan area.20 The Applicant maintains a focus on consistency with other plans,
policies, and reports such as the PSFP, the Oregon Statewide Planning Goals,27 and plans
which specifically identify the area within which this development is proposed. Statewide
Planning Goals 2, 11, 12, and 14 further address this criterion, and especially pertinent is Goal
14 when considering the provision of public facilities and services (Goal 11).
The Metro Plan's General Finding (1) on Page 1-8 states:
"Orderly metropolitan growth cannot be accomplished without coordination of
public investments. Such coordination can be enhanced through use of the
'Public Facilities and Services Plan'and scheduling of priorities. "
In recognition of Oregon Statewide Planning Goal 14,22 the Metro Plan's Metropolitan Goal:
Growth Management, sets forth the provision to use urban, urbanizable, and rural land in an
efficient manner. The Metro Plan also stipulates that future development "...encourage
orderly and efficient conversion of land from rural to urban uses in response to urban needs,
taking into account metropolitan and statewide goals."23 In so doing, the Metro Plan
confirms this proposal's consistency with said provisions; the site's proposed location
satisfies the following statement on Page II-C-1 of the Plan, as it is within Springfield's UGB:
"To effectively control the potential for urban sprawl and scattered
urbanization, compact growth and the urban growth boundary (UGB) are, and
will remain, the primary growth management techniques for directing
geographic patterns of urbanization in the community. In general, this means
the filling in of vacant and underutilized lands, as well as redevelopment inside
the UGB."
79 The PSFP does not identify transportation projects,which are covered in the TransPlan but instead identifies
stormwater and wastewater projects, among others. The PSFP appropriately defines only those projects
identified as "significant" on the basis of definitions set forth in the PSFP.
20 Lane Council of Governments (LCOG). (2004). Eugene-Springfield Metropolitan Area General Plan. Page 1-2,
planning framework item (2). Page II-A-1, Fundamental Principle (2).
11 Ibid. Page 1-6. Goal 2: Land Use Planning, and Goal 14: Urbanization especially apply.
27 Implementing legislation: OAR 660-015-0000(14).
23 Lane Council of Governments (LCOG). (2004). Eugene-Springfield Metropolitan Area Genera!Plan. Page II-C-1,
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 24
SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
0 ZONING MAP AMENDMENT APPLICATION
Additionally, this proposal is consistent with the Plan's Factor G.5: Environmental, energy,
economic, and social consequences24 (see Page II-G-13 of the Metro Plan) and Finding C.4:
Finding C.4: "Periodic evaluation of land use needs compared to land supply
provides a basis for orderly and non-excessive conversion of rural land to
urbanizable land and provides a basis for public action to adjust the supply
upward in response to the rate of consumption" (Metro Plan, Page 11-C-2).
While this proposal seeks to facilitate the redevelopment of an infill site rather than increase
the supply of Springfield's buildable acres by developing outside the UGB or Springfield city
limits, it addresses this Finding such that it helps prevent(emphasis added) outward
expansion— the consumption and excessive conversion of rural land is unwarranted as
found in the RLHNA.25 This request is consistent with the RLHNA's finding that additional
housing may already be accommodated within Springfield's existing UGB. Furthermore, the
classification of the proposed site is vacant and undeveloped, which satisfies not only the
requirement for preventing haphazard expansion of the UGB but also demonstrates that the
compact development in this area will be a logical, efficient provision of urban services that
currently exist within the city limits that are adjacent to this site.26
The potential connection points for future development to take advantage of, given the
existing LDR uses surrounding the site, nearby commercial uses, and potential to integrate
with the existing transportation network therefore satisfy the Metro Plan's Finding 2, items
• (a), (b) and (d):
Beneficial results of compact urban growth include:
a. Use of most vacant leftover parcels where utilities assessed to abutting
property owners are already in place.
b. Protection of productive forest lands, agricultural lands, and open space
from premature urban development.
d. Decreased acreage of leapfrogged vacant land, thus resulting in more
efficient and less costly provision and use of utilities, roads, and public
services such as fire protection.
The area encompassing the site is currently developed and is served by existing urban
facilities and services. The minimum level of key urban facilities and services (interpreted as
key urban services) are defined in the Metro Plan as including wastewater service,
stormwater service, transportation, solid waste management, water service, fire and
" Under Factor G.5, Page II-G-13 of the Metro Plan states: "The Metro Plan Diagram represents a balancing of all
environmental, energy,economic, and social impacts, as addressed by LCDC goals and the Metro Plan text. For
example,decidedly lower residential densities and a much larger land supply may result in lower land costs,
but energy savings may very well be sacrificed through need for longer transportation routes and
accompanying fuel consumption."
41 25 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan. Finding 31. Page 19.
26 Lane Council of Governments (LCOG). (2004). Eugene-Springfield Metropolitan Area General Plan. Finding 9,
Page III-F-4.Transportation Element.
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 25
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42"D STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
emergency medical services, police protection, city-wide parks and recreation programs,
electric service, land use controls, communication facilities, and public schools on a district-
wide basis.' Sanitary sewer, stormwater, water utilities, and transportation facilities are
available and can be extended in an orderly and efficient manner within a reasonable
timeframe as needed, consistent with this criterion and consistent with the following findings
of the PSFP:
Finding 1, Page 10: Urban expansion within the urban growth boundary is
accomplished through in fill, redevelopment, and annexation of territory that
can be served with a minimum level of key urban services. This permits new
development to use existing facilities and services, or those which can be
easily extended, minimizing the public cost of extending urban facilities.
Finding 5, Page 10:All urbanizable areas within the Eugene-Springfield urban
growth boundary can be served with water, wastewater, storm water, and
electric service at the time those areas are developed.
Transportation
Regarding transportation, the roads surrounding the site are classified as Urban Local and
Urban Minor Collector until Daisy Street and Jasper Road (Urban Major Collectors) serve as a
connection to these roads to the north and to the south, respectively. South 42"d Street runs
adjacent to the site's property line to the west in northerly and southerly directions. To the
north is Booth Kelly Road, and to the south is Mt. Vernon Road. Main Street, just over a half-
mile to the north, is easily accessible from these roads by vehicle. Consistent with the
project recommendations of the RTP, a continuous 5- to 10-foot sidewalk and bicycle lane run
the entire length of South 42nd Street adjacent to the site and continue to Main Street, where
a sheltered LTD bus stop is at the intersection of South 42"d Street and Main Street on the
southeast corner.
The existing transportation facilities for automobiles are sufficient to handle the proposed re-
zoning and subsequent development. The proposed rezoning requested by the Applicant,
and uses allowed under LDR zoning, can be constructed while maintaining acceptable levels
of service and safety on the surrounding transportation system. The RTP, TransPlan,
Springfield TSP Existing Conditions and Deficiencies Report, and Springfield TSP (proposed)
identify this site as not requiring roadway improvements to address capacity, operations, or
surfacing concerns. The RTP identifies South 42nd Street at Daisy Street as potentially
requiring "roadway system improvements," which the 2014-2018 CIP further explains as a
low-priority project not yet requiring inclusion on a funding list.
Roadway Conditions: Surfacing
Figure 6 of the proposed Springfield TSP illustrates the results of the City's 2010 Street
Conditions Report. Per the 2010 report, there are 31 arterial and collector street segments
that are noted as having the highest priority for improved conditions with pavement
overlays. This area is not considered a "high priority area;" thus there are little to no
concerns with road surfaces around the site.
S
2 Lane Council of Governments (LCOG). (2004). Eugene-Springfield Metropolitan Area General Plan. Glossary,
Page V-3.
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 26
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
Operations: Capacity and Safety
The proposed Springfield TSP required research to inform its recommendations. This
research is presented in its Existing Conditions and Deficiencies Report. The report provides
findings that explain a review of traffic volumes throughout Springfield to understand how
traffic flows vary on weekday afternoons while school was in session. It found that schools
may cause peak traffic volumes, especially at the end of the school day. Review of hourly
traffic volume patterns at several locations throughout the city confirmed a higher level of
activity during this time period. Because an educational use is currently on the site, any
future uses permitted on an LDR zone will be less intense or will be proportional to the
existing use.
The Oregon Highway Plan (OHP) considers capacity in addition to safety. The OHP requires a
level of service (LOS) "D" for the intersection at South 42"d Street and Daisy Street, the
closest intersection to this site that was within the scope of this study. The Existing
Conditions and Deficiencies Report notes that per the TransPlan, the City and County view
intersections as operating with acceptable standards if they maintain a LOS "D" or better.
This intersection is controlled by stop signs. Although the intersection operates at a LOS
"E," the movement operates well-below capacity so a traffic signal is not warranted. CH2M
HILL's, Kittleson & Associates, and Alta Planning & Design's field observations did not reveal
any queuing issues to suggest a need for immediate mitigation measures. The report also
noted that there were no reported crashes from the year 2005 through the year 2009.
Therefore, the impacts to Springfield's transportation system and public facilities resulting
from the proposed Zoning Map Amendment will not facilitate land use or levels of
redevelopment that would result in types or levels of travel or access that are inconsistent
with the functional classification of an existing or planned transportation facility (OAR 660-
012-0060(1)(c)(A)).
There are no building, stormwater, or wastewater concerns near the site that qualify for
inclusion on the City's CIP project list with dedicated funding nor are there any identified on
the partially funded project list, consistent with the 2002 TransPlan. This finding
demonstrates that the vicinity surrounding the site requires minimal to no improvements to
accommodate the proposed LDR zone.
Stormwater
Stormwater facilities are present along the southern and western portions of the site. On or
adjacent to the site are nine (9) stormwater basins, with the furthest basin provided just
across Mt. Vernon Road.
City-maintained PVC and conduit stormwater mains run along South 42"d Street and Mt.
Vernon Road. South 42'Street contains approximately 2,740 feet of stormwater mains and
service lines that are 18 square feet in diameter. An 8-square foot line runs through Mt.
Vernon Road for approximately 1,267 feet. The stormwater facilities on Mt. Vernon Road
connect to lines that run southward under South 44th Street.
The City of Springfield Storm water Facilities Master Plan identified the area surrounding the
• site (Area 9) as having potential drainage leaks when flooded (Figure 3-11). Springfield City
staff determined this Area a higher-priority CIP area based on 2008 recommendations (Figure
5-1: Capital Improvement Priority Locations).
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 27
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
ZONING MAP AMENDMENT APPLICATION
However, the 18 locations identified as higher-priority were selected as such due to
previously observed flooding and/or that significant development upstream was anticipated.
These locations were again sorted based on discussions regarding future development. The
result of this discussion led to a determination that the capacity existing in the area was
adequate to support future development of low-intensity uses, such as those allowed under
LDR (Page 5-4). Accordingly, the 2013-2017 and 2014-2018 CIPs identify no additional
needs for system capacity improvements.
Wastewater
The 2013-2017 and 2014-2018 CIPs similarly identify no needs for wastewater facility
improvements. The City's Wastewater Master Plan (Plan) shows an existing major ("main")
wastewater system pipe approximately 590 feet away from the southernmost point of the
site (Figure ES-1). The Main Street Trunk Sewer is just a half-mile away to support infill and
residential development that may require service lines. Notwithstanding possible needs for
facility expansion, the Plan shows upgrades to the existing system along South 41' Street
from manhole 10034589 to manhole 10034519, approximately 714 feet of its distance at the
time of the Plan's adoption.
Existing sanitary sewer mains are on-site and are immediately adjacent to the southern and
western boundaries of the site. Connecting to Mt. Vernon Road, the on-site conduit facility is
70 feet in length. Along South 42nd Street adjacent to the site are two (2) connection points.
One (1) point extends in a southerly direction, providing nearly 471 feet of available facilities,
and the other extending northward for approximately 1,091 feet, until reaching Daisy Street.
Along the entire frontage of the site, a main runs through Mt. Vernon Road for approximately
1,136 feet. This facility connects to South 42nd, 43rd, and 44th Streets.
Based on the findings above, this criterion is satisfied.
4. Legislative Zoning Map amendments that involve a Metro Plan Diagram
amendment shall:
a. Meet the approval criteria specified in Section 5.14-100; and
b. Comply with Oregon Administrative Rule (OAR) 660-012-0060, where
applicable.
This request for a Zoning Map Amendment is Quasi-Judicial in nature, as previously noted.
This criterion does not apply.
5.2 Conclusion
Based on available information, supporting materials, and the findings in Section 5.1, the
request is consistent with all applicable approval criteria and provisions.
•
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 28
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42N0 STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
EXHIBITS
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Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 Exhibits
• •
SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
0 ZONING MAP AMENDMENT APPLICATION
EXHIBIT A
DEED
•
Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 A
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SPRINGFIELD PUBLIC SCHOOLS
SOUTH 42ND STREET SURPLUS PROPERTY
• ZONING MAP AMENDMENT APPLICATION
EXHIBIT B
VICINITY MAP
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Cameron McCarthy INITIAL SUBMITTAL I October 15, 2013 B
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