HomeMy WebLinkAboutOrdinance 5935 08/02/1999
...
.'
.
ORDINANCE NO.
5935
AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD
METROPOLITAN AREA GENERAL PLAN TO ADOPT A NEW
"RESIDENTIAL LAND USE AND HOUSING ELEMENT" AND RELATED
CHANGES TO THE PLAN TEXT AND GLOSSARY; ADOPTING A
SEVERABILITY CLAUSE; AND PROVIDING AN EFFECTIVE DATE.
The Common Council of the City of Springfield finds that:
A. Chapter IV of the Eugene-Springfield Metropolitan Area General Plan ("Metro
Plan") sets forth procedures for amendment of the Metro Plan, which for Springfield are
implemented by the provisions of Article 7.010 through Article 7.110 of the Springfield
Development Code, 1986.
B. The Councils and Board of Commissioners of Springfield, Eugene, and Lane County
voted to initiate review of the Residential Land and Housing Element as part of the Metro Plan
Periodic Review Work Program approved by the Oregon Department of Land Conservation and
Development (DLCD) in May 1995.
C. The review was guided by a Citizen Advisory Committee appointed by the three
jurisdictions.
D. The Citizen Advisory Committee held monthly meetings between July 1995 and
December 1997, heard presentations from interested groups, and held a public forum to identify
residential land and housing issues.
E. The review by the Citizen Advisory Committee resulted in the Citizen Advisory
Committee Policy Recommendations Report; January 1998 which was forwarded to the Planning
Commissions in Eugene, Springfield and Lane County to consider.
F. The Planning Commissions of Eugene, Springfield, and Lane County conducted joint
public hearings on the Citizen Advisory Committee recommendations on April 14 and 16, 1998 and
joint worksessions of August 18 and October 13, 1998.
G. The Planning Commissions of Eugene, Springfield, and Lane County, on November
30, 1998, January 5, 1999, and January 19, 1999 respectively, unanimously recommended approval
of the proposal as modified.
H. Evidence exists within the record indicating that the proposal meets the requirement
of Articles 16 and 31 of the Springfield Development Code, 1986, and the requirements of
Ordinance - 1
r:\ordinance\reslndord.wpd(3/l7/99)
~
.1
.
.
applicable state and local laws.
G. The Springfield Common Council has conducted public hearings on 4/14/99 and
on 8/2/99 and is now ready to take action.
NOW, THEREFORE,
THE CITY OF SPRINGFIELD DOES ORDAIN AS FOLLOWS:
Section 1. The "Residential Land Use and Housing Element" (Section III-A) of the Metro
Plan is deleted and replaced by adoption of a new "Residential Land Use and Housing Element"
(Section III-A), as set forth in Part I of Exhibit "A" attached and incorporated herein.
Section 2. Additions and modifications to terms in the Glossary (Section V) of the Metro
Plan, and amendments to other statements of the Metro Plan for purposes of consistency with
adoption of a new "Residential Land Use and Housing Element", are adopted as set forth in Parts
II and III of Exhibit A attached and incorporated herein.
Section 3. Although not a part of this Ordinance, the Council adopts Findings in support of
this action as set forth in Exhibit B attached, which findings are supported by the 1999 Supply and
Demand Technical Analysis and the 1999 Site Inventory Document which are incorporated herein
and made part of the Technical Supplement to the Metro Plan by this reference.
Section 4. This Ordinance shall take effect and become operative when the identical
provisions of Sections 1,2 and 3 herein above are adopted by the Eugene City Council and Lane
County Board of Commissioners.
Section 5. If any section, subsection, sentence, clause, phrase, or portion of this Ordinance
is for any reason held invalid or unconstitutional by any court of competent jurisdiction, that portion
shall be deemed a separate, distinct, and independentprovision and that holding shall not affect the
validity of the remaining portions of this Ordinance.
Adopted by the Common Council of the City of Springfield, Oregon, this 2nd
Augus t 1999, by a vote of 5 for and 1 against.
day of
1999
Approved by the Mayor of the City of Springfield, Oregon, this 2nd day of Augus t ,
~~1~
Maureen M. Maine, Mayor
ATTEST:
~
Recorder
Ordinance - 2
r:\ordinance\reslndord.wpd(3/17/99)
REVIEWED & APPROVED
A~O~~~ ~A'-~
DATE: '-\ i 11 Cj '\
OFFICE OF CITY ATTORNEY
.
.
.
.
Ordinance 5935
page 3
Exhibit A
to
Ordinance No. 5935
Part I:
Chapter ill-A, Residential Land Use and Housing Element of the Eugene-Springfield
Metropolitan Area General Plan is replaced with a new Chapter ill-A to read as follows:
A. Residential Land Use and Housing Element
The Residential Land Use and Housing Element addresses the housing needs of current and
future residents of the metropolitan area. Land in residential use occupies the largest share of
land within the urban growth boundary. The existing housing stock and residential land supply
and its relationship to other land uses and infrastructure is critical to the future needs of all
residents.
This element addresses State Housing Goal 10, 'To provide for the housing needs of citizens of
the state.' Housing demand originates with the basic need for shelter but continues into the
realm of creating communities. The policies contained in this element are based on an analysis
of land supply and existing and future housing demand including existing housing problems and
the needs of the expected future population. Numerous factors were reviewed to develop a
projection of future housing demand including projected number of households, household
income, age, household size, household type and special housing needs. The background
material with this analysis is contained in two documents, the 1999 Supply and Demand
Technical Analysis; and the 1999 Site Inventory Document.
This element is organized by seven topics related to housing and residential land. These topics
include:
· Residential Land Supply and Demand;
· Residential Density;
· Housing Type and Tenure;
· Design and Mixed Use;
· Existing Housing Supply and Neighborhoods;
· Affordable, Special Need, and Fair Housing; and
· Coordination.
The applicable findings and policies are contained under each topic heading.
Finally, the policies listed provide direction for the local jurisdictions in preparing zoning and
development regulations to address future housing needs.
Each jurisdiction will be responsible to implement the policies contained in the Residential
Element. At the time of the annual monitoring report, information on progress made to realize
policy direction will be made available in that process. As local jurisdictions implement this
.
.
.
Ordinance 5935
page 4
Element of the Metro Plan, they will be involved in the analysis of the suitability of certain
residential designations in terms of density. and location and may propose changes, based on this
analysis, to the Metro Plan diagram.
Goal
Provide viable residential communities so all residents can choose sound, affordable housing that
meets individual needs.
Residential Land Supply and Demand
Findings
1. By 2015, the Eugene-Springfield Metropolitan Study Area is projected to reach a
population of between 291,000 and 311,000. This represents an increase of between
approximately 87,000 and 107,000 persons from the 1990 population of 204,359.
2. Average household size has been declining both nationally and locally due to a variety of
factors. This trend will result in the need for more dwelling units to house population
growth.
3.
Based on the 2015 projected population and average household size, there is a need for
between 40,000 and 49,000 new housing units in the Eugene-Springfield urban growth
boundary between 1992 and 2015.
4. There is sufficient buildable residential land within the existing urban growth boundary to
meet the future housing needs of the projected population. In fact, the 1992 residential
buildable land supply exceeds the 1992-2015 residential land demand in all residential
categories. Assuming land is consumed evenly over the period, by 1999, there will be at
. least a 20-year supply of residential land remaining inside the urban growth boundary.
.0
.
.
Ordinance 5935
page 5
Supply and Demand Analysis in Acres
Low Medium High Total
Density Density Density
SUPPLY . :0' . ',.0
Total Net Buildable Acres 4,780 ' 828 195 5,802
for Housing
Flat Buildable Acres 3,159 777 192 4,129
15-25% Sloped Land 913 41 1 955
Eugene 605 39 1 645
Springfield 307 2 1 310
Steep Sloped (>25%) Buildable 708 9 1 718
Acres
Eugene 341 2 0 343
Springfield 367 6 1 374
DEMAND
Low-High Range Residential Demand 3,298 - 523 - 120 - 3,941 -
Remaining After Subtracting Demand 4,225 641 147 5,013
Met by Buildable Lots
Land Demand for Housing Displaced 27 0 0 27
by Redevelopment
Total Expected Residential Land 3,840 589 135 4,564
Demand - 1992-2015
Low-High Range Residential Land 3,325 - 523 - 120 - 3,968 -
Demand - 1992-2015 4,252 641 147 5,040
Difference between Total Buildable
Supply and Expected Residential 940 239 60 1,238
Land Demand in Acres*
Note: Totals may differ due to rounding. Assumptions are estimates based on available data.
*Housing is not allocated to commercial and mixed use designated land due to State Administrative Rules although
it is known that some housing will be built on commercial and mixed use land.
.
.
.
Ordinance 5935
page 6
Supply and Demand Analysis in Units
Low Medium High Total
Density Density Density
SUPPLY ..0 , ' , ".. . .
Total Units on Buildable Acres 28,681 13,078 6,760 48,519
Units on Flat Buildable Acres 21,797 12,432 6,720 40,949
Units on 15-25% Sloped Land 5,403 632 39 6,074
Eugene (same density as flat) 4,175 624 35 4,834
Springfield (@4 Dwelling 1,228 8 - 4 1,240
Units/acre)
Units on Steep (>25%) Sloped 1,482 14 1 1,497
Buildable Land
Eugene (@3 DU/acre) 1,023 6 0 1,029
Springfield (@ 1.25 DU/acre) 459 8 1 468
DEMAND
Low-High Range Residential Demand 22,873 - 8,384 - 4,200 - 35,457 -
Remaining After Subtracting Demand 29,042 10,270 5,145 44,457
Met by Buildable Lots & Infill
Unit Demand for Housing Displaced by 149 0 0 149
Redevelopment
Total Expected Residential Unit 26,449 9,432 4,725 40,606
Demand - 1992-2015
Low-High Range Residential Unit 23,022 - 8,384 - 4,200 - 35,606 -
Demand - 1992-2015 29,191 10,270 5,145 44,606
Difference between Total Buildable
Supply and Expected Residential 2,232 3,646 2,035 7,913
Land Demand in Units* \
Note: Totals may differ due to rounding. Assumptions are estimates based on available data.
*Housing is not allocated to commercial and mixed use designated land due to State Administrative Rules although
it is known that some housing will be built on commercial and mixed use land.
5.
Undeveloped residential land is considered unbuildable and removed from the supply if it
is within 230 KV powerline easements, the floodway, protected wetlands or wetland
mitigation sites in Eugene, wetlands larger than 0.25 acres in Springfield or buffers
around Class A and B streams and ponds. The remaining buildable residential land is
located primarily on the outer edge of the UGB and some of the buildable residential land
has development constraints such as slopes, floodplain, hydric soils and wetlands.
Ordinance 5935
page 7
.
.
.
Development potential is reduced in Springfield on flood plain areas and in Eugene on
remaining potential wetlands due to moderate constraints that can support a less intense
level of development.
6.
Anticipated federal regulations affecting fish habitats in the Pacific Northwest and new
applications for regulating under-designated, saturated, hydric soils by Oregon's Division
of State Lands, as well as other factors, make a definitive calculation of the buildable land
supply difficult. The adopted buildable land supply inventory represents the local
jurisdiction's best assessment of the amount of buildable land that will be available
within the urban growth boundary until the year 2015.
7.
In 1995, approximately 28 percent of the buildable residential land supply did not have
public services, primarily sewer. Of this total, 1,136 acres or 12 percent will not be
served for ten or more years; 521 acres (5.5 percent) will be served in five to ten years;
476 acres (5 percent) in three to four years, and 520 acres (5.5 percent) in one to two
years.
8.
In the aggregate, nonresidential land uses consume approximately 32 percent of buildable
residential land. These nonresidential uses include churches, day care centers, parks,
streets, schools, neighborhood commercial, etc.
9.
Some of the residential land demand will be meet through redevelopment and infill.
Residential infill is occurring primarily in areas with larger, single-family lots that have
surplus vacant land or passed over small vacant parcels. Redevelopment is occurring
primarily in the downtown Eugene and West University areas, where less intensive land
uses, such as parking lots and single-family dwellings are being replaced with higher
density, multi-family development.
10. Since the last Periodic Review of the Metro Plan in 1987, there have been only two
minor expansions of the UGB for residentially designated land. Each expansion was less
than one acre in size.
11. The UGB defines the extent of urban building and service expansion over the planning
period. There are geographic and resource constraints that will limit expansion of the
UGB in the future. At such time that expansion is warranted, it will be necessary to cross
a river, develop agricultural land, or cross over a ridge where the provision of public
services and facilities will be expensive.
12. Since adoption of the Metro Plan, the supply of residential lands has been negatively
affected (diminished) due to federal, state, and local regulations to protect wetlands,
critical habitat of endangered/threatened species, and other similar natural resources.
This trend is likely to continue in order to meet future Statewide Planning Goal 5 and
stormwater quality protection requirements.
13.
Springfield charges a system development charge for storm water, wastewater, and
transportation. Willamalane Park and Recreation District charges a system development
Ordinance 3935
page 8
.
charge for parks. Springfield Utility Board charges for water. Eugene charges for storm
water, wastewater, parks, and transportation.' Eugene Water and Electric Board charges
for water. These charges could be increased in some cases. Currently, state law does not
include local systems development charges for fire and emergency medical service
facilities and schools. Depending on market conditions, residents of newly constructed
housing also pay for services and facilities they receive through local assessment districts,
connection charges, direct investment in public infrastructure, and property taxes.
Policies
Al Encourage the consolidation of residentially zoned parcels to facilitate more options for
development and redevelopment of such parcels.
A2 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.
A3 Provide an adequate supply of buildable residential land within the UGB for the 20-year
planning period at the time o(Periodic Review.
A4 Use annexation, provision Qf adequate public facilities and services, rezoning,
. redevelopment, and in fill to meet the 20-year projected housing demand.
A5 0 Develop a monitoring system that measures land consumption, land values, housing type,
size, and density. Reports should be made to the community on an annual basis.
A6 Eugene, Springfield and Lane County shall encourage a community dialogue, when the
annual monitoring report on land supply and housing development is made public, to
address future Periodic Review requirements that relate to meeting the residential land
supply needs of the Metro area.
A7 Endeavor to provide key urban services and facilities required to maintain a five-year
supply of serviced, buildable residential land.
A8 Require development to pay the cost, as determined by the local jurisdiction, of extending
public services and infrastructure. The cities shall examine ways to provide subsidies or
incentives for providing infrastructure that support affordable housing and/or higher
density housing.
.
Ordinance 5935
page 9
. Residential Density
Findings
14. Housing costs are increasing more rapidly than household income. With rising land and
housing costs, the market has been and will continue to look at density as a way to keep
housing costs down.
15. Recently approved subdivisions are achieving lot sizes on flat land averaging 7,400
square feet in Eugene and 7,800 square feet in Springfield. Comparing the net density' of
all Eugene-Springfield Metro single family-detached units in 1986 and 1994 indicates
that in 1986 the net density was 4.12 units per acre which equates to a 10,573 square foot
lot while in 1994, the net density was 4.18 units per acre or a 10,410 square foot lot.
These trends indicate that development in low-density is achieving assumed density
expectations.
16.
Although single-family detached lot sizes are decreasing, the Metro Plan targeted
residential densities for all new development are not being achieved at this time. The
Metro Plan assumes a net density of 8.57 units per acre (note: translation from 6 units per
gross acre2) for new development over the planning period. For new dwelling units
constructed during 1986 to 1994, the net density was 7.05 units per acre based on the
Lane County Geographic Information System (GIS). The estimated average overall
residential net density for all residential development has climbed from 5.69 units per
acre in 1986 to 5.81 units per acre in 1994.
.
17. Both Springfield and Eugene have adopted smaller minimum lot size requirements to
allow increased density in low-density residentially designated areas. Even so, density in
low-density residentially designated areas does not routinely achieve the higher range of
low-density zoning (near 10 units/gross acre) due to the current market and the area
requirements for other site improvements such as streets.
18. Offering incentives (e.g., reduced parking requirements, tax abatements) for increased
density has not been completely successful in this metro area. In areas where some
increase in density is proposed, there can be neighborhood opposition.
Policies
A9 Establish density ranges in local zoning and development regulations that are consistent
with the broad density categories of this plan.
.
'Density) (Net): The number of dwelling units per each acre of land, excluding areas devoted to dedicated streets, neighborhood
parks, sidewalks, and other public facilitieso
2Density (Gross):The number of dwelling units per each acre of land, including areas devoted to dedicated streets, neighborhood
parks, sidewalks, and other public facilities.
.
.
.
Ordinance 5935
page 10
Low density: Through 10 dwelling units per gross acre (could translate up to
14.28 units per net acre depending on each jurisdictions implementation measures
and land use and development codes)
Medium density: Over 10 through 20 dwelling units per gross acre (could
translate to over 14.28 units per net acre through 28.56 units per net acre
depending on each jurisdictions implementation measures and land use and
development codes)
High density: Over 20 dwelling units per gross acre (could translate to over 28.56
units per net acre depending on each jurisdiction's implementation measures and
land use and development codes)
AIO Promote higher residential density inside the urban growth boundary that utilizes existing
infrastructure, improves the efficiency of public services and facilities, and conserves
rural resource lands outside the urban growth boundary.
All Generally locate higher density residential development near employment or commercial
services, in proximity to major transportation systems or within transportation-efficient
nodes.
\
Al2 Coordinate higher density residential development with the provision of adequate
infrastructure and services, open space, and other urban amenities.
A13 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.
A14 Review local zoning and development regulations periodically to remove barriers to
higher density housing and to make provision for a full range of housing options.
A15 Develop a wider range of zoning options such as new zoning districts, to fully utilize
existing Metro Plan density ranges.
A16 Allow for the development of zoning districts which allow overlap of the established
Metro Plan density ranges to promote housing choice and result in either maintaining or
increasing housing density in those districts. Under no circumstances, shall housing
densities be allowed below existing Metro Plan density ranges.
Ordinance 5935
page 11
. Housing Type and Tenure
Findings
19. Based on 1990 Census data for the Eugene area, there is a relationship between
household income, size of household, age of household head, and housing choices people
make regarding type and tenure. The trends established are as follows: lower income
and increasingly moderate-income, primarily young and single-person households tend to
be renters. Ownership increases as income and family size increase. Older households
predominately remain in owner-occupied, single-family housing, but as the age of the
head of household reaches 65, ownership rates begin to decline.
20. Based on the ECO NorthwestlLeland Study, What is the Market Demandfor Residential
Real Estate in Eugene/Springfield? (October 1996) a larger share of the future population
will be composed of smaller, older, and less affluent households. This will alter housing
market demand in many ways over the next 20 years. Married couple families with
children will no longer be the predominate household type of the residential market.
Singles, childless couples, divorcees, and single parents will be a much larger proportion
of the market than in the past. To meet the needs of these households, more choices in
housing types (both for sale and for rent) than currently exist will be necessary.
.
21.
Based on Lane County Assessment data, in the 1980s and 1990s, there was a shift to
larger, single-family detached homes, even though the average number of persons per
household has been declining.
22. Between 1989 and 1998,45 percent of all new housing was single-family detached
including manufactured units on lots. As of 1998, about 59 percent of all dwelling units
were single-family detached. This represents a decrease in the share of single-family
detached from 61 percent in 1989.
Policies
A17 Provide opportunities for a full range of choice in housing type, density, size, cost, and
location.
A18 Encourage a mix of structure types and densities within residential designations by
reviewing and, if necessary, amending local zoning and development regulations.
A19 Encourage residential developments in or near downtown core areas in both cities.
A20 Encourage home ownership of all housing types, particularly for low-income households.
.
A21 Allow manufactured dwelling parks as an outright use in low-density residential zones if
the local jurisdiction's prescribed standards are met.
Ordinance 5935
page 12
\
. Design and Mixed Use3
Findings
23. Mixed use development (residential with commercial or office) has the potential to
reduce impacts on the transportation system by minimizing or eliminating automobile
trips.
24. Mixed use may be seen as a threat to predominantly residential development. Standards
on siting and use and design review are seen as ways to mitigate negative impacts.
25. In-home business and telecommuting are becoming more common. The market for
combining home and office uses will continue to increase.
26. While people generally are open to the concept of higher density, they are still concerned
about how density will affect their neighborhood in terms of design, increased traffic, and
activity. With higher densities, people need more local parks and open space.
.
27. The metropolitan area enjoys a wide variety of open spaces, natural areas, and livable
neighborhoods. As density increases, design and landscaping standards and guidelines
may be necessary to maintain community livability and aesthetics, as well as making
density more acceptable.
Policies
A22 Expand opportunities for a mix of uses in newly developing areas and existing
neighborhoods through local zoning and development regulations.
A23 Reduce impacts of higher density residential and mixed use development on surrounding
uses by considering site, landscape, and architectural design standards or guidelines in
local zoning and development regulations.
A24 Consider adopting or modifying local zoning and development regulations to provide a
discretionary design review process or clear and objective design standards, in order to
address issues of compatibility, aesthetics, open space, and other community concerns.
Existing Housing Supply and Neighborhoods
Findings
28. Accommodating residential growth within the current urban growth boundary encourages
in-fill, rehabilitation, and redevelopment of the existing housing stock and
.
3Mixed Use: A building, project or area of development that contains at least two different land uses such as housing, retail, and
office uses
Ordinance 5935
page 13
. neighborhoods.
29." As the age of the housing stock reaches 25 ,years, the need for rehabilitation,
weatherization, and major system upgrades increases. Approximately 59 percent of the
single-family housing stock was built prior to 1969.
30. More renters than owners live in sub-standard housing conditions. Based on the 1995
Eugene/Springfield Consolidated Plan, about 16 percent of all occupied rental units of the
metropolitan housing stock is considered to be in sub-standard condition.
31. Local government has had and will continue to have a role in preserving the aging
rousing stock. Preserving the housing stock has numerous benefits to the community
because much of the older housing stock represents affordable housing. In addition,
upgrading the aging housing stock provides benefits that help stabilize older
neighborhoods in need of revitalization.
Policies
.
A25 Conserve the metropolitan area's supply of existing affordable housing and increase the
stability and quality of older residential neighborhoods, through measures such as
revitalization; code enforcement; appropriate zoning; rehabilitation programs; relocation
of existing structures; traffic calming; parking requirements; or public safety
considerations. These actions should support planned densities in these areas.
A26 Pursue strategies that encourage rehabilitation of existing housing and neighborhoods.
Affordable4, Special NeedS, and Fair Housing
Findings
32. Substantial and continued federal funding reductions for housing assistance are increasing
the burden on local governments. The high cost of housing for low-income families
directly correlates with an increasing demand for other support services such as food
supplement programs and utility assistance. The high cost of housing results in
homelessness for some households. Homelessness directly and indirectly negatively
impacts public health, public safety, and public education systems in multiple,
m~asurable ways.
4 Affordable housing: Housing priced so that a household at or below median income pays no more than 30 percent of its total gross
income on housing and utilitieso (HUD's figure for 1997 annual median income for a family of three in Lane County is $33,900; 30% =
$847/month.)
.
5 Special need housing: Housing for special needs populations. These populations represent some unique sets of housing problems
and are usually at a competitive disadvantage in the marketplace due to circumstances beyond their control. These subgroups include, but are
not limited to, the elderly, persons with disabilities, homeless individuals and families, at-risk youth, large families, farm workers, and persons
being released from correctional institutionso
Ordinance 5935
page 14
.
33.
The next 20 years are expected to see increased need for apartments and single-family
housing for 10w-6 and very 10w-7income households. Based on the 1990 Census,
approximately 20 percent of all households are currently classified as very low-income.7
34. There is a shortage of unconstrained medium- and high-density zoned sites, for sale, that
are flat and serviced with utilities. This is particularly true in Eugene. Low-income
projects frequently must use density bonuses or other land-use incentives that require
additional land use processes such as public hearings, which exposes the project to longer
timelines and appeals.
35. Based on the 1995 Eugene/Springfield Consolidated Plan, in Eugene and Springfield, 35
percent of households experience housing problems (defined by HUD as overcrowded,
substandard, or the household is paying over 30 percent of its income for housing and
utilities). The predominate housing problem is that households are paying more than they
can afford for housing.
36. The de-institutionalization of people with disabilities, including chronic mental illness,
has continued since the 1980s and adds to the number of homeless, poorly housed, and
those needing local support services and special need housing.'
(
37.
Based on the annual one-night Lane County shelterlhomeless counts, the number of
homeless people is increasing and a third of the homeless are children.
.
38.
Demographics point to an increasing proportion of the population over 65 years of age in
the future. This will require more housing that can accommodate the special needs of this
group.
39. Construction of housing with special accommodations or retrofitting existing housing
drives up the occupancy costs for the tenant. Tenants with special needs typically have
low incomes and are less able to pay increased rents.
40. Existing land use regulations do not easily accommodate the establishment of alternative
and innovative housing strategies, such as group recovery houses and homeless shelters.
41. Existing emergency shelters do not have the capability to serve the entire homeless
population. This results in people illegally inhabiting residential neighborhoods and
non-residentially zoned areas. The challenges facing homeless people are increased when
they are forced far out of the urban areas where resources, training, treatments, and job
opportunities are less available.
6Low-income housing: Housing priced so that a household at or below 80% of median income pays no more than 30 percent of its
total gross household income on housing and utilitieso (HUD's figure for 1997 annual 80% of median for a family of three in Lane County is
$27,150; 30% = $678/montho)
.
7
Very low-income housing: Housing priced so that a household at or below 50 percent of median income pays no more than 30
percent of its total gross household income on housing and utilitieso (HUD's figure for 1997 annual 50% of median for a family of three in
Lane County is $16,950; 30% = $423/montho)
.
.
.
Ordinance 5935
page 15
42.
Practices of some cultures, such as Latino and Asian households, conflict with existing
public policies that limit a household to five unrelated adults, and private rental practices
that limit occupancy to two people per bedroom.
43. Fair housing issues typically impact renters more often than home buyers and
discrimination tends to increase when the vacancy rate decreases.
Policies
A27 Seek to maintain and increase public and private assistance for low and very low income
households that are unable to pay for shelter on the open market.
A28 Seek to maintain and increase the supply of rental housing and increase home ownership
options for low- and very low-income households by providing economic and other
incentives, such as density bonuses, to developers that agree to provide needed below-
market and service-enhanced housing in the community.
A29 Consider public purposes such as low- and very low-income housing when evaluating
urban growth boundary expansions.
A30 Balance the need to provide a sufficient amount of land to accommodate affordable
housing with the community's goals to maintain a compact urban form.
A31 Consider the unique housing problems experienced by special needs populations,
including the homeless, through review of local zoning and development regulations,
other codes, and public safety regulations to accommodate these specialized needs.
A32 Encourage the development of affordable housing for special needs populations that may
include service delivery enhancements on-site.
A33 Consider local zoning and development regulations impact on the cost of housing.
A34 Protect all persons from housing discrimination.
Coordination
Findings
44. All three general purpose governments in the metropolitan area implement housing
programs and coordinate their housing planning and implementation activities.
45.
In the Eugene-Springfield Metropolitan area, public, private non-profit, and private for
profit developers work closely with the cities to develop low-income housing.
Policies
.
.
.
Ordinance 5935
page 16
A.35 Coordinate local residential land use and housing planning with other elements of this
plan, including public facilities and services, and other local plans, to ensure consistency
among policies.
A.36 Coordinate public, private, and consumer sectors of the area's housing market, including
public-private partnerships, to promote housing for low- and very low-income households
and to increase housing density and types.
A.37 Consider the suggested implementation measures in the Residential Lands and Housing
Study and other measures in order to implement the policy directives of the Residential
Land Use and Housing Element of the Metro Plan
:1
.
.
.
Ordinance 5935
page 17
Exhibit A
PART II:
The Glossary set forth in Chapter V of the Eugene-Springfield Metropolitan Area
General Plan is amended to read: (additions shaded, deletions in stllk.eout); in the final draft, the
definition numbers will be deleted, and the unamended definitions will be included.
New definition:
Affordable housing: Housing priced so that a household at or below median income pays no
more than 30 percent of its total gross income on housing and utilities. (HUD's figure for 1997
annual median income for a family of three in Lane County is $33,900; 30% = $847/month.)
New definition:
Annexation: An extension of the boundaries of a city or special district. Annexations are
governed by Oregon Revised Statutes. In the Eugene-Springfield metropolitan area, annexations
currently require approval by the Boundary Commission.
New definition:
Buildable residential lands: Land in urban and urbanizable areas that is suitable, available, and
necessary for residential uses. Buildable land includes both vacant land and developed land
likely to be redeveloped. Lands defined as unbuildable within the metro UGB are those within
the floodway, land within easement of 230 KV power lines, land within 75 feet of Class A
stream or pond, land within 50 feet of Class B stream or pond, protected wetlands and wetland
mitigation sites in Eugene, and wetlands larger than 0.25 acres in Springfield. Publicly owned
land is generally not considered available for residential use. Buildable land includes property
not currently sewered but scheduled to be sewered within the 20-year planning period.
New definition:
Density: The average number of families, persons, or housing units per unit of land. Density is
usually expressed as dwelling units per acre.
New definition:
Density bonus: A mechanism used in incentive-based zoning that allows a developer to build at
higher densities in return for providing more open space, building affordable housing or some
other public amenity.
Replace:
z.:. Delis!tv. ~lOSS. TIle UunmGI of dwelllug unlt~ and alea in auxll~m}' uses, ~uGh as
deJkatGd load~, p<1tks, atld public, fc:ic,~l~t~e~, pel adG vi la.ud.
With:
Density (gross): The number of dwelling units per each acre of land, including areas devoted to
dedicated streets, neighborhood parks, sidewalks, and other public facilities.
Replace:
.
.
.
Ordinance 5935
page 18
J. Dell~it}. net. TIle numbel o[ dweIH.ng~ Ulllt.s pel aele uf land l.n aGtuallesldcntlal U5e, in
othGi wOld5, cxdudlng dedkated loads, path, and pnblk [aGilitIes.
With:
Density (net): The number of dwelling units per each acre of land in residential use, excluding
from the acreage dedicated streets, neighborhood parks, sidewalks, and public facilities.
New definition:
Development: The construction, reconstruction, conversion, structural alteration, relocation, or
enlargement of any structure; any excavation, landfill, or land disturbance; and any human-made
use or extension of land use.
Delete definition: I
9. Duple1\. Jwell~llg unIt. A duplex dwclHng unIt 15 a two-lul.lt6tluGtl1le hav~ng a COill1110n
wa:1l between the dwelHng unlt5.
New definition:
Fair housing: Refers to the prevention of discrimination against protected classes of people.
Protected classes, as defined by the federal government, refer to race, color, religion, national
origin, or sex. Protected classes are disproportionately comprised of very low-income
populations.
Revised definition:
Goal: A broad statement of philosophy that describes the hopes o[ the people of a community
for the its future of the conullUnlty. A goal may never be completely attainable but is used as a
point towards which to strive fur.
New definition:
In-fill: Development consisting of either construction on one or more lots in an area that is
mostly developed or new construction between existing structures. Development of this type can
conserve land and reduce sprawl.
New definition:
Infrastructure: The facilities and services that support the functions and activities of a
community, including roads, street lights, sanitary sewer lines, storm drainage, power lines, and
water lines.
New definition:
Low-income housing: Housing priced so that a household at or below 80% of median income
pays no more than 30 percent of its total gross household income on housing and utilities.
(HUD's figure for 1997 annual 80% of median for a family of three in Lane County is $27,150;
30% = $678/month.)
---------------------
Ordinance 5935
page 19
.
Replace:
8. Mobile, hOm",. A dwelllng unlt d~~lgned to b{, commeldally t1an~po1table Oil the publk
h~ghways that hM ~le~plng, Gook...;.ug, and plumblng fadlltle~ fuld ~~ ~utedoded fOl p~ul1anGnt
human OCGuPilllGy. This dOGS not Indude Gillnp~11~ or vaGation tIallel~ olleCleatlonal vehkle~.
(Not",. Now Galled mUftu/udIMl;;J JvvdZ;,tgs.)
With:
Manufactured dwelling: A structure constructed at an assembly plant and moved to a space in a
manufactured dwelling park or a lot. The structure has sleeping, cooking, and plumbing facilities
and is intended for residential purposes.
New definition:
Manufactured dwelling park: Any place where four or more manufactured dwellings are located
within 500 feet of one another on a lot, tract or parcel of land under the same ownership, the
primary purpose of which is to rent or lease space.
New definition:
Metropolitan area: Generally, an area that includes and surrounds a city or group of cities. The
Eugene-Springfield metropolitan area is the area within the Metro Plan boundary.
New definition:
Mixed use: A building, project or area of development that contains at least two different land
...
. uses such as housing, retail, and office uses.
Delete definition: ~
Multlple-fanlilv dwellln~ ull~t. A multiple-family dwdllng unlt l~ a dwelling unlt In a ~t1UGtUIe
hal,11ng tI:u.ce 01 mOlG unlts. It Gall be a COlldOHhn~um, to~nhouse, IOwhou~e, li~p1cx, or
apattmenL Use of th~ t~uu nmltlple-filll1;'ly doe~ lleccssallly G01J.UOtc lental.
Replace:
14. Ptuft dia~lam. A glaphk depkt~on of. a) the broad alloGatlon of plOjected lalld us~
need~ In th", metIOpol~tau alea, add b) the gOal." objeGtl vG~ alld reGOHhllendatlon~ elnbodled In
the teAt and eleJ.uellts of the I'tuft. SOme of tILe. InfoJ.mat~un Showll 011 the dlagJ.illH ~udude~ lilll.d
u~e Gategolle~, the UIban glowth botludillY, majoJ. t.an~poJ.tat~on Gouldol~, and \\TlllillHe-ttc Rll,1el
G1CGllway bOulldalles.
With:
Plan diagram: A graphic depiction in the Metro Pl(;ln of: a) the land use planned for the
metropolitan area; and b) the goals ando policies embodied in the text and elements of the Plan.
Information includes land use designations and the urban growth boundary.
.
Replace:
t5: Polky. StatelHGnt adopted a~ pillt of the I'lwt to prol,1~dG a speG~GG GOUJ.~G of aGtloll
mOvlng thG GOlll1Htlnlty tOWald:!) attalnmellt of it:!) goal:!). Due to budt;et GOllstlalnts chid
OthG1 aal v ~ties, all polkks Gannot be implelhcnted at the 6ame t~lll",. GenGlally, thuse
with lH~tIOpolitan-'W Id~ implkation:!) sllould J.Gcel vG p1loJ.lty cOllsldenttion.
Ordinance 5935
page 20
.
With:
Policy: A statement adopted as part of the Metro Plan or other plans to provide a specific course
of action moving the community towards attainment of its goals.
Replace:
16. Rede\1elOpahle laud. COlhplete laA lots or pullious of laX lots w likh, dUG to thel!
GhalaGtcIistks, have hIgh pot(;,ntlal for redevdopl11Gnt at a IhOle IntGil.sl~e use. These
GhelladeIisl~Gs might ha~e oue 01 IHure of lhe followIng.
a. Low 1Inpro~e.d \1a1ue. to laud value. Hltio
b. FOOi phys~(,al GOll.ditlon of th~ impiOvemenl
G. Low Implo\1ed value
d. Large ~~z;e
e.. II~ghe! Loulng potential (lnd~GatOi of adjaGGut uses)
With:
Redevelopable land: Land on which development has already occurred, but on which, due to
present or expected market forces, there is a strong likelihood that existing development will be
converted to or replaced by a new and/or more intensive use. This land might have one or more
- of the following characteristics: low improved value to land value ratio; poor physical condition
of the improvement; low improved value; large size; and/or higher zoning potential.
.
New definition:
Redevelopment: Rebuilding or adaptive reuse of land that has been previously built upon. It
may promote the economic development of an area that has been run-down or is no longer
needed for its previous use, such as industriallan~ that is redeveloped as residential.
Replace:
17. Refiueme.iit plat!.. Rdlnelucnt plans cUe a dctalkd exatihnallou of lhe set vl(,e needs and
land uSC plOLlem6 peGul~ar to a pcUl~GulcU are.a. ReLuemGuts lo the Ge..lh~lal Flarl Gell!
indude spe.c.lfk !lelghboilloud 01 Gonullunlly plarls 0.1 spcc.lal PUlpOSe. or fuudional plans
(sUGh as walc.i, S(,WC1, O! tJ.ail6pOitat~on plans). In addltio.ll, 1efl.llcmenl plan6 Gall be ~n the
fOHU of majo.l plcU!nvd uuit dCveloplll.vlll6, arl.llexatlou arid Loning appl~Gations, 01 othe!
sp~c.la1 mea 6tudle6.
With:
Refinement plan: A detailed examination of the service need~ and land use issues of a specific
area, topic, or public facility. Refinement plans ofthe Metro Plan can include specific
neighborhood plans, special area plans, or functional plans (such as TransPlan) that address a
specific Metro Plan element or sub-element on a city-wide or regional basis.
.
Revised definition:
Riparian: LOGated un the edge of a Ii vC! 01 othCi hoJy of wah~1. The land bordering a stream or
river; also pertaining to the vegetation typical of those borders (grasses, shrubs, and trees such as
reed canary grass, spiraea, willows, ash, and cottonwoods).
Replace:
.
.
.
-
Ordinance 5935
page 21
20.
Rutallands. Rmallands aJ.e those which ate outside the ploj~aed atban sel vke ,uGa ,uld
ale. a) nOHUl ban agricultural, forest, or op~n space lclilds, 01 b) other lands suitable fOl
sparse Sc,ttkmeilt, suGh as small faIll1S or acreage homesites, w;th no Ot hclidly allY public.
senic.es and whiGh ate not suitable., il.eGeS~cliy, 01 intended for ulban use (r(.[Gl to glaphic.
on PdgG 'V -4). SGG also Chaptel II, Seaion E, fOl a fUlthel descript;oil of forest lands and
agric.ultulal aleas, as sep.uately dep;Gt~,d on the PIau d;dgl,uH.
With:
Rural lands: Those lands that are outside the urban growth boundary. Rural lands are
agricultural, forest, or open space lands; or other lands suitable for sparse settlement, small
farms, or acreage home sites with limited public services, and which are not suitable, necessary or
intended for urban use.
New Definition:
Service enhancements: Services and amenities provided (or delivered) to lower income tenants
based on individual needs on site in order to promote empowerment towards self-sufficiency.
Replace:
39. Sin~k-fdl1~ly dwellin~ unit. A .sin51e-family d~~llillg ulllt is a slllt;le-faJ.luly detached
.struGtl11e on ail indiv;duaf paIcel.
With:
Single-family detached: A free-standing dwelling unit that does not share any walls or the roof
with another dwelling unit.
New definition:
Special need housing: Housing for special needs populations. These populations represent some
unique sets of housing problems and are usually at a competitive disadvantage in the marketplace
due to circumstances beyond their control. These subgroups include, but are not limited to, the
elderly, persons with disabilities, homeless individuals and families, at-risk youth, large families,
farm workers, and persons being released from correctional institutions.
Replace:
23. Undeldevc.1op{.d land. The vaGant or agric.ultulal pOlt;on of land on tax lots hav;ll.g more
thau one land nse.
With:
Underdeveloped land: The vacant or redevelopable portion of land not having the highest and
best use allowed by zoning.
J
Revised definition:
Undeveloped land: Complete tc'iA lot", whic.h clie Land that is vacant or used for agricultural
purposes.
Revised definition:
Urban lands: Brbm Lands are located within an incorporated city. (Refer to graphic on page V-
.
.
.
Ordinance 5935
page 22
4.)
New definition:
Very low-income housing: Housing priced so that a household at or below 50 percent of median
income pays no more than 30 percent of its total gross household income on housing and
utilities. (HUD's figure for 1997 annual 50% of median for a family of three in Lane County is
$16,950; 30% = $423/month.)
New definition:
Zoning: A measure or regulation enacted primarily by local governments in which the
community is divided into districts or zones within which permitted and special uses are allowed.
Zoning regulations govern lot size, building bulk, placement, and other development standards.
A zoning ordinance typically consists of two parts: a text and a map.
.
\0
'\
.
.
.
..
Ordinance 5935
page 23
Exhibit A
PART III:
The following sections of the Eugene-Springfield Metropolitan Area General Plan
(Metro Plan) are amended in order to be consistent with the findings and policies of the
Residential Land Use and Housing Element. These revisions are listed in order as they appear in
the Metro Plan. They are indicated by Chapter, Section, page number, and paragraph of the July
1997 reprint of the 1987 Metro Plan. Changes to the text are shown in stJ.ik:e-out (for deletions)
and shaded (for additions). Explanatory comments are in italics.
CHAPTER ONE - INTRODUCTION
A. Introduction
p.I-l third paragraph
This document incorporates all amendments as of June 1997 (fill-in effective adoption
date), 1999.
B. Purpose
p. 1-1 second paragraph
The Plan is intended to designate a sufficient amount of urbanizable land to accommodate
the need for further urban expansion, taking into account the growth policy of the area to
accommodate a population of 293,700. Insert a footnote with the following explanation.
Footnote: The population projection range for the Residential Land Use and Housing Element is
291,700 to 311,100. The expected population for the year 2015 is 301,400.
C. Plan Contents
p.I-3 fourth paragraph
Chapter ill is composed of specific elements, including within each an introductory text,
applicable goals from Chapter II, and findings, objectives, and policies. Insert a footnote with
the following wording. Footnote: Through updates to the Metro Plan, the objectives and
policies are being combined. Eventually, each element will contain only findings and policies.
I. General Findings and Assumptions
p. 1-7 first assumption
1. A population of 293,700 is expected to reside in the metropolitan area by the year
2000. This is a 59 percent increase from the 1977 population of 184,300. Since this Plan is
designed to accommodate the expected population rather than remain static until 2000, it can be
adjusted periodically as changes in population trends are detected. Insert afootnote with the
following explanation. Footnote: The population projection range for the Residential Land Use
and Housing Element is 291,700 to 311,100. The expected population for the year 2015 is
301,400.
p. 1-7 sixth assumption
,------
.
.
.
Ordinance 5935
page 24
6. Based on projections of recent population and economic trends, there will be sufficient
land within the urban growth boundary, depicted on the Plan diagram in Chapter II, to ensure
reasonable choices in the market place for urban needs to serve a metropolitan population of
293,700, provided periodic updates of the Plan are conducted and the area designated for
urbanization on the diagram is updated to assure that the supply remains responsive to demand.
Insert a footnote with the following explanation. Footnote: There are sufficient residential lands
to meet the housing needs of the projected high population of 311,100.
CHAPTER TWO - PLAN PRINCIPLES
B. Growth Management and the Urban Service Area
p. II-B-6 fifteenth policy
15. Ultimately, land within the urban growth boundary shall be annexed to a city and
provided with the required minimum level of services. While the time frame for annexation may
vary, annexation should occur as land transitions from urbanizable to urban. the tlausltlon of
Ulban~LaLle laud to uiban, withIn the tuban giowth bOundc:iiy, shOuld OGGUl bdole the populatIon
of 293,700 ~~ ieadlGd.
D. Urban and Urbanizable Land
p. II - D-l second paragraph
The undeveloped (urbanizable) area within the urban growth boundary, separating urban
and urbanizable land from rural land, has been carefully calculated to include an adequate supply
to meet demand for a projected population of 293,700 through the end of the planning period
(2000). Insert a footnote with the following explanation. Footnote: The population projection
range for the Residential Land Use and Housing Element is 291,700 to 311,100. The expected
population for the year 2015 is 301,400.
E. The Plan Diagram
p.II-E-l second paragraph
Projections indicate a population of approximately 293,700 will reside and work in the
metropolitan area around the year 2000. Insert a footnote with the following explanation.
Footnote: The population projectipn range for the Residential Land Use and Housing Element is
291,700 to 311,100. The expected population for the year 2015 is 301,400.
p. II-E-2 first paragraph under Residential heading
This category is expressed in gross acre density ranges. Using gross acres, approximately
3e 32 percent of the area is available for auxiliary uses, such as streets, elementary and junior
high schools, neighborhood parks, other public facilities, neighborhood commercial services, and
churches not actually shown on the diagram.
P. II-E-3 first paragraph
These ranges do not prescribe particular structure types, such as single-family detached,
dUPle.A, mobile. some, single-family attached, manufactured dwellings in parks, or multiple-
family. This distinction, if necessary, is left to local plans and zoning ordinances.
p. II-E-3 third paragraph
Ordinance 5935
page 25
.
To !'-spond to tIle need for lesld'-lJt~al oppoltulJ~ties neal elJlploy nleil:t Geut,-!s and publk
tIanspoitat~on, 2,400 uults elL'- alloGated to the :CugMe c.entlal bM~l!ess dlstIkt and vv Ithln one
mile of ~t6 cote. Due to the ab~'-lKe of ~uf.Gdent va'-aut land Ill. the COle Mea, 60me
wdevelopme.lt wlll be leyuiled.
p. II-E-3 fourth paragraph
As of January 1, 1977, density of all existing residential development within the 1990
Plan projected urban service area was about 3.64 dwelling units per gross acre. For new
dwelling units constructed during 1986 to 1994, the net density was 7.05 dwelling units per acre
based on the Lane County geographic information system (GIS). The estimated overall
residential net density for all residential development has climbed from 5.69 dwelling units per
acre in 1986 to 5.81 dwelling units per acre in 1994. This updated Plan, including the diagram,
calls for an overall average of about six dwelling units per gross acre for new construction
through 2015 WOO, the planning period. By realizing this goal, the community will benefit from
more efficient energy use; preservation of the maximum amount of productive agricultural land;
use of vacant leftover parcels where utilities are already in place; and more efficient, less costly
provision of utilities and services to new areas. This higher overall average density can only be
achieved if the cities explore, and when feasible, in light of housing costs and needs, adopt new
procedures and standards including those needed to implement the policies in the Residential
Land and Housing Element., fo! CAa01llple.
a.
. b.
G.
d.
MIullJ.Jum dGusltle~
Rvduc.ed lhlnhHulH setbad..s, f! Olltages, ,hJd lot bIzes
MOlc dustG! devdopmeut ~llGeiltlve~
ZvnIug based 011 density lathe! tlJall stIl1Gtu!e tJpe, pMt~c.ulMly ~ll ne\\! developmcuts
p. III -C-17 fourth paragraph
(4) Deviation from the standard specified in subsections 1 (1) and 1 (2), above, of the
impacted forest land for the creation of a parcel not smaller than 20 acres may be 0
allowed when at least 19 acres of the parcel being created are currently managed
or planned to be managed by a farm management plan for a farm operation
consisting of one or more of the following: berries, grapes, or horticultural
specialties. A temporary mobile IJome manufactured dwelling which is accessory
to the farm management may be conditionally located upon the farm parcel for a
reasonable length of time to allow for substantial implementation of the farm
management plan. Upon evidence that the farm management plan has been
substantially implemented, the mobilc hOlHe manufactured dwelling may be
allowed on a permanent basis or may be converted to a permanent dwelling.
.
.
"
,
.
Ordinance 5935
page 26
Exhibit B
to
Ordinance No. 5935
FINDINGS IN SUPPOoRT OF AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD
METROPOLITAN AREA GENERAL PLAN TO ADOPT A NEW "RESIDENTIAL LAND
USE AND HOUSING" ELEMENT AND RELATED CHANGES TO THE PLAN TEXT AND
GLOSSARY AND PROVIDING AN EFFECTIVE DATE.
The following criteria from Eugene Code Section 9.128(3), and Springfield Development Code
7.070(3), and Lane Code 12.225(2) shall be applied by the elected officials in approving or
denying an amendment to the Metro Plan:
(a) The amendment must be consistent with the relevant statewide planning goals
adopted by the Land Conservation and Development Commission;
(b) Adoption of the amendment must not make the Metro Plan internally inconsistent.
The Eugene and Springfield city councils and the Lane County Board of Commissioners make
the following findings with respect to the criteria set forth in Eugene Code Section 9.128(3), and
Springfield Development Code 7.070(3), and Lane Code 12.225(2):
The following information, analysis, reports, minutes and materials are included along with other
material, in the record of this proceedings. While this supporting background material may not
all be specifically mentioned or referenced in the findings, they provide most of the factual basis
for these findings.
· March 1995, Metropolitan Residential Land and Housing Study Citizen Involvement
Plan
· September 1997, Public InvolvementPlan for the Transplant Update and the
Metropolitan Residential Land and Housing Study
· Metropolitan Residential Land and Housing Study Work Program 2/1/96
· Citizen Advisory Committee (CAC) notebook with background material distributed to
CAC
· June 1995, How Do We Grow From Here
· May 1996, Transportation-Efficient Development
· May 1995, Eugene-Springfield Consolidated Plan
· June 1995, Preliminary Draft Supply and Demand Analysis
· May 1997, Eugene-Springfield Metropolitan Residential Land and Housing Study Draft
Policy Analysis
· CAe Minutes and all public testimony to the CAC
· September 1997, Residential Land and Housing Study Citizen Advisory Committee
Preliminary Draft Policy Recommendations
1 - Findings in Support of Metro Plan Amendments
.
" ';
<'
~
'.
Ordinance 5935
page 27
.
January 1998, Residential Land and Housing Study Citizen Advisory Committee Policy
Recommendations
Planning Commission Process Minutes
Indexed Public Testimony during Planning Commission Public Hearings
Residential Land and Housing Study Issue/Comment Identification from Testimony
submitted to Eugene, Springfield and Lane County Planning Commissions
Eugene-Springfield Metropolitan Area Residential Land and Housing Study Report on
Residential Demand, Supply and Constrained Lands - 10/13
Planning Commission Amendments to Citizen Advisory Committee Policy
Recommendations Highlighted by Shading
February 1999, Eugene-Springfield Metropolitan Area Residential Land and Housing
Study Policy Recommendation Report
January 1995, Draft Site Inventory Document
April 1997 , Draft Site Inventory Document
1999 Site Inventory Document
July 1997, Draft Supply and Demand Analysis
City of Eugene Urban Growth Boundary and Related Policies, Data and Analysis Report,
November 1997
February 1999, Draft Supply and Demand Analysis
1999 Supply and Demand Technical Analysis
Map of Unbuildable and Constrained Land in relation to the supply
Map of Service Availability
Small Irregular Lot Maps
Output from GIS of constraint and slope analysis
Market Demand Study for Nodal Development, October 1996
Resumes for Terry Moore and David Leland
1995 Site Inventory Documentation and Aerial Analysis
.
.
.
.
.
.
.
.
.
.
.
.
.
.
.
.
.
.
.
.
Criterion #1: Eugene Code Section 9.128(3)(a), Springfield Development Code 7.070(3)(a),
and Lane Code 12.225(2)(a): The amendment must be consistent with the relevant
statewide planning goals adopted by the Land Conservation and Development
,
Commission.
The Residential Land and Housing Study recommendations of the joint planning commissions
are amendments to the Eugene-Springfield Metropolitan Area General Plan text. Specifically,
the changes made replace the Residential Land and Housing Element, Chapter ill-A, amend and
add definitions to the Glossary of the Metro Plan, Chapter V, and other minor or housekeeping
amendments to other portions of the Plan to make the document internally consistent.
Goal 1 - Citizen Involvement: To develop a citizen involvement program that insures the
opportunity for citizens to be involved in all phases of the planning process.
There was significant opportunities and involvement by citizens throughout the Residential Land
and Housing Study. On March 27, 1995, the Joint Planning Commission Committee (JPCC)
2 - Findings in. Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 28
approved a Citizen Involvement Plan (CIP) for the Residential Lands Study. The JPCC is made
up of two planning commissions from each jurisdiction and is charged under the Metro Plan with
providing guidance for citizen involvement in all metro studies and projects (See policy 5,
Citizen Involvement Chapter III-K). Consistent with the JPCC-approved CIP, the Residential
Lands Study was guided by an eleven member Citizen Advisory Committee (CAC). The CAC
represented various housing perspectives in the metropolitan area, and the composition of the
group was approved by the Joint Planning Commission Committee. The list of members and the
organizations they represented were submitted to the Eugene, Springfield and Lane County
elected officials for approval. In the summer 1995, the CAC was officially formed as the group
responsible for the preparation of the Residential Lands Study.
CITIZEN ADVISORY COMMITTEE PROCESS
\
Opportunities for citizen involvement during the CAC process included:
· Monthly CAC Meetings between July 1995 and December 1997. Meetings were
advertised and open to the public and opportunity for public comment was available at
each meeting.
· During this process, representatives from the CAC and staff made presentations on the
study to interested groups.
.
In November 1996, the CAC held a public forum. At the forum, citizens, and CAC
members identified residential land and housing issues.
· In October 1997, the CAC released the Preliminary Draft Recommendations Report. The
report was made available, free of charge, at a variety of accessible locations throughout
the metropolitan area for at least 30 days.
· The draft report was also sent to state agencies and local officials for comment. Each
report contained a comment form intended to capture public sentiment on the issues.
· An open house was held on October 30, 1997 to allow the CAC to hear directly from
those wishing to comment on the report. Newspaper display ads, poster displays and
direct mailings, including the Periodic Review Newsletter mailing list, were used to
advertise the availability of the document and the open house.
· In November and December 1997, the CAC reviewed and addressed all comments and
released the CAC Policy Recommendations Report in January 1998.
· Following release of the CAC recommendations, two open house events for the
Residential Lands Study were conducted in February 1998. These events were open to
the public and designed to provide information and a setting for public discussion with
staff, stakeholders and the public, and an opportunity for public input. Draft documents,
3 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 29
comment forms, fact sheets and visual displays were used to inform the public and
provide opportunities for them to submit comments.
PLANNING COMMISSION PUBLIC HEARINGS AND RECOMMENDATIONS
It was the responsibility of the planning commissions of Eugene, Springfield and Lane County to
make recommendations on the draft Residential Land Study to their respective elected bodies.
Joint public hearings were conducted by the three planning commissions on April 14, and 16,
1998. The planning commissions agreed to extend the public comment period for testimony to
July 6, 1998.
The public hearings were publicized through a mailing to the Residential Lands Study mailing
list, and through legal and display advertisements in the news media.
In addition to the two joint public hearings, the Springfield Planning Commission and Eugene
Planning Commission conducted their own individual hearings for the Residential Lands Study.
These public hearings allowed planning commission members to hear additional public
testimony prior to making a recommendation on plan adoption to their respective elected bodies.
The dates of the individual public hearings were:
Springfield Planning Commission, April 21st, 7:00 P.M.
Eugene Planning Commission, June 30th, 6:00 P.M.
Following the hearings and public testimony period, the three planning commissions held joint
work sessions on August 18, 1998, and October 13, 1998. As background, the Planning
Commissions received indexed copies of all written and oral testimony received during the
public input phase and minutes from public hearings held on April 14th, 16th, 21st and June
30th, 1998.
Following the public hearings and two joint work sessions, the planning commissions met
separately to deliberate and make recommendations to the elected officials. The three planning
commissions developed unanimous recommendations by January 1999. These meetings were
also open to the public, although direct public testimony was not taken at this stage in the
process. Work sessions were held on the following dates:
· November 10, 1998; Springfield Planning Commission;
· November 17, 1998; Springfield Planning Commission;.
· November 23, 1998; Eugene Planning Commission;
· November 24,1998; Eugene Planning Commission;
· November 30, 1998; Eugene Planning Commission;
· December 19, 1998; Lane County Planning Commission;
· January 5, 1999; Springfield Planning Commission;
ELECTED OFFICIALS ADOPTION PROCESS
4 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 30
Following completion of the planning commissions recommendations, elected officials of
Eugene, Springfield and Lane County held preliminary work sessions to become familiar with
the planning commissions recommendations and to prepare for a Joint Elected Official public
hearing held on April 14, 1999. Notice of this public hearing was sent to the interested party
mailing list of over 400 persons and groups and advertised in local newspapers in Eugene and
Springfield. Following the close of the hearing and opportunity for submission of written
testimony, the three elected officials bodies held separate work sessions to deliberate and reach
agreement on changes to the Metro Plan.
I"
The citizen involvement process described above demonstrates compliance with Goal 1 in terms
of: public notices, comment forms, public forums for direct conversations by the public with
Citizen Advisory Committee members, public hearings with the planning commissions and
elected officials, provision of technical information for the public during each phase of the study,
and a record of all comments received during public forums, public hearings and comments
periods that were made available in advance of all decision-making.
Goal 2 - Land Use Planning: To establish a land use planning process and policy framework as
a basis for all decisions and actions related to use of land and to assure an adequate factual base
for such actions.
The amendments to the Eugene-Springfield Metropolitan Area General Plan through the
Residential Land and Housing Study were initiated by Eugene and Springfield city councils and
the Lane County Board of Commissioners by joint adoption of the Periodic Review Work
Program. An integral part of the Residential Land and Housing Study was the use of land use
data, local research and analysis as documented in the 1999 Supply and Demand Technical
Analysis; and the 1999 Site Inventory Document and various background papers found in the
record.
Throughout the study, factual information was presented to and feedback was solicited from the
citizen participants, decision makers, the general public, and affected governmental entities. This
information was presented through a variety of means, including publications, meetings, and the
media. The results of this study are based on fact and are consistent with the planning
framework established in the Metro Plan and applicable State Goals and Oregon Administrative
Rules. Therefore, these amendments comply with Goal 2.
Goal 3 - Agricultural Lands: To preserve and maintain agricultural lands
There are no lands within the Eugene-Springfield Metropolitan Area General Plan Urban Growth
Boundary designated for agricultural use and thus this study and the proposed amendments do
not affect Metro Plan compliance with Goal 3.
Goal 4 - Forest Lands: To conserve forest lands by maintaining the forest land base and to
protect the state's forest economy by making possible economically efficient forest practices that
assure the continuous growing and harvesting of forest tree species as the leading use of forest
5 - Findings in Support of Metro Plan Amendments
.
.
.
Qrd,inahte 5935
page 31
land consistent with sound management of soil, air, water, and fish and wildlife resources and to
provide for recreational opportunities and agriculture.
There are no lands within the Eugene-Springfield Metropolitan Area General Plan Urban Growth
Boundary designated for forest use and thus the proposed amendments do not affect Metro Plan
compliance with Goal 4.
Goal 5 - Open Space, Scenic and Historic Areas, and Natural Resources: To conserve open
space and protect natural and scenic resources.
The 1999 Supply and Demand Technical Analysis provides detailed analysis of how the
Residential Land and Housing Study addressed constrained lands such as sloped lands, wetlands,
floodway and flood plain areas, and waterway corridors (see pages 32 - 46). The Residential
Land and Housing Study also discounted the available residential vacant land by 32 percent in
part to cover areas that would be reserved for open space, parks, and other natural areas.
Adoption of the proposed Metro Plan amendments will not cause the loss of significant Goal 5
resources. Therefore, the amendments are consistent with Goal 5.
Goal 6 - Air, Water, and Land Resources Quality: To maintain and improve the quality of
the air, water, and land resources of the state.
The 1999 Supply and Demand Technical Analysis addresses constrained lands and excludes
from the available land inventory all land within a 75 feet of Class A streams or ponds and 25
feet of Class B streams or ponds. This limitation allows for buffer and protection of these stream
corridors which will protect water quality. The proposed amendments to the Metro Plan do not
concern waste and process discharges that would impact the quality of air, water and land
resources. Therefore, these amendments are consistent with Goal 6.
Goal 7 - Areas Subject to Natural Disasters and Hazards: To protect life and property from
natural disasters and hazards.
As addressed in the 1999 Supply and Demand Technical Analysis, vacant areas within the
floodway are designated as unbuildable and subtracted from the land supply. Further, in
Springfield, land within the 100-year flood plain was not assigned any housing development, due
to flooding and high water potential. Land in the Eugene flood plain was not subject to this
restriction due to findings by the Eugene Planning Commission that these areas could be
developed at planned density by adhering to flood plain regulations in the Eugene Code.
Sloped lands in the Metro area were considered in the 1999 Technical Supply and Demand
Analysis as constrained lands and these areas were assigned a lower level of development. This
is due to the need to address the natural conditions, vegetation and drainage issues in sloped
areas that make development more difficult and less intensive than in flat land areas. In addition,
the building permit processes of the Eugene and Springfield and the State Building Code address
seismic issues and unstable soils. Therefore, these amendments are consistent with Goal 7.
6 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 32
Goal 8 - Recreational Needs: To satisfy the recreational needs of the citizens of the state and
visitors and, where appropriate, to provide for the siting of necessary recreational facilities
including destination resorts.
The Residential Land and Housing Study does not directly address recreational needs. However,
the Residential Land and Housing Study discounted the available residential vacant land by 32
percent in part to account for areas that would be reserved for open space, parks, and other
natural areas. Therefore, these amendments are consistent with Goal 8
Goal 9 - Economic Development: To provide adequate opportunities throughout the state for a
variety of economic activities vital to the health, welfare, and prosperity of Oregon's future.
The proposed Metro Plan amendments do not change any commercial or industrial plan diagram
designations or any economic policies of the Metro Plan. Therefore, the amendments will not
affect Metro Plan compliance with Goal 9.
Goal 10 - Housing: To provide for the housing needs of citizens of the state.
This analysis is divided into two sections. First, are findings showing how the proposed policies
are consistent withe Goal 1 O. Secondly, is an analysis of the Residential Land and Housing
Study and its consistency with the Administrative Rule that implements Goal 10, OAR 660-08.
All the proposed amendments to the Residential Land Use and Housing element address the
broad direction in Goal 10 to "provide for the housing needs of citizens of the state". While not
an exhaustive listing, below are some of the major policies and how they address Goal 10.
The proposed amendments are organized into the topics of:
· Residential Land Supply and Demand
· / Residential Density
· Housing Type and Tenure
· Design and Mixed Use
· Existing Housing Supply and Neighborhoods
· Affordable, Special Need, and Fair Housing
· Coordination
Each of these topics and the policies contained in each address specific elements of the broad
direction of Goal 10.
The policies in Residential Land Supply and Demand section provide for a supply of land to
meet the housing needs of the Metro area for the planning period of 1995 to 2015. The following
policies provide this direction:
Policy 3
Provide an adequate supply of buildable residential land within the UGB
for the 20-year planning period at the time of Periodic Review.
7 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 33
Policy 4
Policy 5
Policy 6
Use annexation, provision of adequate public facilities and services,
rezoning, redevelopment, and in-fill to meet the 20-year projected housing
demand.
Develop a monitoring system that measures land consumption, land
values, housing development and housing density and reports to the
community on an annual basis.
Endeavor to provide key urban services and facilities required to maintain
a five-year supply of serviced, buildable residential land.
These policies support providing a 20-year supply of land for the planning period and show how
to facilitate meeting the demand through tools such as annexation and provision of public
facilities and services. They also call for developing a monitoring system to measure the
consumption of land.
The next topic in the element, Residential Density, lays out mechanisms to better utilize land
within the urban growth boundary.
Policy 9
,
Policy 10
Policy 12
Policy 13
Promote higher residential density inside the urban growth boundary that
utilizes existing infrastructure, improves the efficiency of public services
and facilities, and conserves rural resource lands outside the urban growth
boundary .
Generally locate higher density residential development near employment
or commercial services, in relationship to major transportation systems or
within transportation-efficient nodes.
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
existing and historic neighborhoods.
Review local zoning and development regulations periodically to remove
barriers to higher density housing and to make provision for a full range of
housing options.
These policies direct that higher densities should be allowed at various locations within the urban
area to prolong the life of the current urban growth boundary. They also point to other ways to
increase density such as in-fill and redevelopment. Policy 13 calls for review of zoning and
development regulations to ensure that barriers to higher density are removed and a full range of
housing options are provided.
The next section is Housing Type and Tenure which contains the following policies, among
8 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 34
others:
Policy 16
Provide opportunities for a full range of choice in housing type, density,
size, cost, and location.
Policy 19
Encourage home ownership of all housing types, particularly for
low-income households.
These policies provide direction for meeting the varied housing needs of the Metro area in terms
of housing type, density, cost" and location. As our population changes over time, having a
variety of housing types will be necessary to meet the needs of all residents of the Metro area.
The next section covers Design and Mixed with the following policies:
Policy 21
Expand opportunities for a mix of uses in newly developing areas and
existing neighborhoods through local zoning and development regulations.
Policy 22
Reduce impacts of higher density residential and mixed use development
on surrounding uses by considering site, landscape, and architectural
design standards or guidelines in local zoning and development
regulations.
Mixed use development (residential with commercial or office) has the potential to reduce
impacts on the transportation system by minimizing or eliminating automobile trips. It has the
prospect to create more functional and walkable neighborhoods. While people generally are
open to the concept of higher density, they are still concerned about how density and mixed use
development will affect their neighborhood in terms of design, increased traffic, and activity.
Standards on siting and use and design review as called for in the above policy 22 are seen as
ways to mitigate negative impacts.
The next section concerns Existing Housing Supply and Neighborhoods and the following policy
gives direction for this critical area of housing:
Policy 24
Conserve the metropolitan area's supply of existing affordable housing
and increase the stability and quality of older residential neighborhoods,
through measures such as revitalization; code enforcement; appropriate
zoning; rehabilitation programs; relocation of existing structures; traffic
calming; parking requirements; or public safety considerations. These
actions should support planned densities in these areas.
In addition to providing vacant land for the development of new housing, it is important to also
address the existing stock of housing. Preserving the housing stock has numerous benefits to the
community because much of the older housing stock represents affordable housing. In addition,
upgrading the aging housing stock provides benefits that help stabilize older neighborhoods in
9 - Findings in Support Of Metro Plan Amendments
.
.
.
Ordinance 5935
page 35
need of revitalization.
The next section covers Affordable, Special Need, and Fair Housing and the following policies
provide direction for these topics:
Policy 26
Seek to maintain and increase public and private assistance for households
that are unable to pay for shelter on the open market.
Policy 31
Encourage the development of affordable housing for special needs
populations that may include service delivery enhancements on-site.
Policy 33
Protect all persons from housing discrimination.
The next 20 years are expected to see increased need for low- to moderately priced apartments
and single-family housing. Meeting this demand is provided in policy 26 as well as others. The
de-institutionalization of people with disabilities, including chronic mental illness, has continued
since the 1980's and adds to the number of homeless, poorly housed, and those needing local
support services and special-needs housing. Also our population is aging and the special needs
of older persons must be addressed. Fair housing issues typically impact renters more often than
home buyers and discrimination tends to increase when the vacancy rate decreases. The policies
in this section address these needs.
The final section of the proposed Residential Land Use and Housing Element concerns
coordination of housing and the following policies provides direction to the metro area
jurisdictions and housing providers.
Policy 34
Coordinate local residential land use and housing planning with other
elements of this plan, including public facilities and services, and other
local plans, to ensure consistency among policies.
,
Policy 35
Coordinate public, private, and consumer sectors of the area's housing
market, including public-private partnerships, to promote affordable
housing and to increase housing density and types.
These policies provide direction for coordinating the many aspects of the adequate provision of
housing in the Metro area.
Overall, all the proposed amendments address some aspect of the housing goal and the above
analysis shows that the amendments will be consistent with the broad direction of Goal 10.
Oregon Administrative Rules (OAR) 660-008 contains rules to implement Goal 10. The
applicable requirements are found primarily in OAR 660-008-0010 and 660-008-0020. Below
are the requirements (in italics) followed by findings showing how the 1999 Technical Supply
and Demand Analysis, 1999 Site Inventory Document and proposed amendments to the Metro
10 - Findings in Support of Metro Plan Amendments
Ordinance 5935
page 36
.
Plan meet these requirements. In most cases the findings also reference where in the record the
factual basis and more detailed analysis supports the findings.
OAR 660-008-010 Allocation of Buildable Land (Housing Needs Projection): The mix and
density of needed housing is determined in the housing needs projection. Sufficient buildable
lands shall be designated on the comprehensive plan map to satisfy housing needs by type and
density range as determined in the housing needs projection.
The first part requires a determination of the needed mix of housing types and densities of
housing. The 1999 Technical Supply and Demand Analysis contains this analysis (see
Projecting Future Housing Units section). Appendix B of the Joint Planning Commission Policy
Recommendations Report also provides a summary analysis under OAR 660-08.
To determine the needed housing by type and density, ECONorthwest and Leland Consulting
Group conducted an analysis of future market demand (see What is the Market Demand for
Residential Real Estate in Eugene-Springfield? ) This analysis shows that household
characteristics and housing demand will change in the future. As the baby boomers age, the age
of head of household will increase and the size of households will decline. There will also be a
decrease in married couple families with children and an increase in the proportion of lower- to
middle income households. These changes in conditions will demand smaller and alternative
housing products. The table in the 1999 Technical Supply and Demand Analysis titled 1990-
2015 Housing Unit Demand shows the expected future housing type mix. Findings 4 of the
. proposed amendments also addresses having sufficient buildable land as follows:
Policy 4.
There is sufficient buildable residential land to meet the future housing
needs of the projected population. In fact, the 1992 residential buildable
land supply exceeds the 1992-2015 residential land demand in all
residential categories. By 1999, there will be a 20-year supply of
residential land remaining inside the UGB. This assumes land is
consumed evenly over the period.
As defined by OAR 660-08-005(5), "Housing Needs Projection" refers to a local dtermination
justified in the Plan of the mix of housing types and densities that will be:
(a) Commensurate with the financial capabilities of present and future area residents of all
income levels during the planning period.
Meeting this standards requires several steps which include determining the population expected
over the planning period (1995-2015) and determining the expected income levels of this
population and needed household characteristics such as dwelling structure type.
.
The 1999 Technical Supply and Demand Analysis contains detailed explanation of the
population forecast used in this study. There are four components of the population model:
fertility, mortality, migration and a special population. The fertility component, which accounts
11 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 37
for births, and the mortality component, which accounts for deaths, combine to determine natural
increase. An economic component was used to project migration. The University of Oregon
students were considered a special population and were not included in the resident population.
The model separated population change into components and projected each component
independently. The model begins with a base population broken into five-year cohorts. For
these projections, 1990 U.S. Census figures were used. Population projections were developed
for Lane County first. This allowed for the comparison with other projections and actual birth,
death and labor force data. After the county projections were arrived at, the projections were
developed for the Eugene-Springfield Metropolitan Study Area.
In 1990, the Eugene-Springfield metropolitan study area population was 204,359. The metro
area population is projected to reach 301,400 persons by 2015, an increase of 97,041 persons or
a 47 percent increase. This represents a 1.57 percent annual average increase over the 25-year
period 1990 to 2015. Between 1990 and 2010, the Eugene-Springfield metro area population is
expected to grow faster than both the state and the County, increasing at an annual average rate
of approximately 1.54 percent compared to the state's 1.45 and the County's 1.50. The table in
the 1999 Technical Supply and Demand Analysis report titled Eugene-Springfield Metropolitan
Area Population shows in five year increments the expected population.
There are a number of factors that affect the demand for housing in addition to the growth in
households. To identify the long-run market for housing in the Eugene-Springfield UGB,
ECONorthwest and Leland Consulting Group conducted an analysis. See Appendix B of the
February 1999, Draft Supply and Demand Technical Analysis. These consultants identified and
projected the relevant factors and projected the residential demand for housing units by housing
type. This analysis shows that the population will be older, less affluent and will need smaller
and alternative dwelling units. Using the population projection and the results from the
ECONorthwest and Leland Consulting Group study, the expected housing unit needs by type
was developed (see 1999 Technical Supply and Demand Analysis, section titled Projecting
Future Households. This resulted in a need for a range' of between 40,000 to 49,000 added
dwelling units within the planning period. The breakdown of dwelling units by type is in a table
titled Eugene-Springfield Urban Growth Boundary 1990-2015 Housing Unit Demand.
Based on the above analysis and that contained in the 1999 Technical Supply and Demand
Analysis, the housing needs projection does take into account financial capabilities of future
residents in projecting housing for the planning period.
(b) Consistent with any adopted regional housing standards, state statutes and LCDC
administrative rules; and
'0
IThe Residential Lands Study Citizen Advisory Committee decided to use a range that
was 10 percent below and above the actual projection to allow a reasonable latitude in the
projection number. This same range is used throughout the study analysis.
12 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 38
There are no adopted regional housing standards for the Eugene-Springfield area comparable to
those adopted for the Portland MetropoliJan area in LCDC's Metrpolitan Housing Rule, (OAR
660-07). The existing Metro Plan policy establishing density ranges low Low, Medium, and
High-Density Residential can be considered a regional standard. As documented in the 1999
Technical Supply and Demand Analysis, the proposed amendments are consistent with this
standard.
In 1995, the Oregon Legislature passed House Bill 2709 (HB 2709) concerning planning for
needed housing. Goal 10, Oregon Revised Statutes and Administrative Rules already required
jurisdictions to analyze and provide for needed housing prior to the adoption of HB 2709. HB
2709 supplem~nted these provisions as follows.
1. Refined the definition of "buildable lands",
2. Required coordination of population projections,
3. Set criteria for prioritizing land for UGB expansions, and
4. Set specific requirements in ORS 197.296.
Provisions #1 through #3 apply to all Oregon jurisdictions, including Eugene-Springfield.
Provisions #1 and #2 were addressed in this study. Provision #3 was not addressed in this study
because no urban growth boundary amendments are proposed. Regarding #4, the
Eugene-Springfield area is not required to comply with ORS 197.296 at this time, as explained
below.
1.
Definition of Buildable Lands [ORS 197.295(1)]
Buildable lands now include "developed land likely to be redeveloped." Prior to HB 2709, it was
a local option as to whether or not to include redevelopable lands in the buildable lands
inventory. The Residential Land and Housing Study included redevelopable lands in the
inventory (see 1999 Technical Supply and Demand Analysis, section titled Infill and
Redevelopment) .
2. Coordination of Population Forecasts (ORS 195.036)
HB 2709 requires the coordinating body for an area to establish and maintain a population
forecast for the area and to coordinate the forecast with the local governments within its
boundary. L-COG is the designated coordinating body in Lane County for preparing and
updating population forecasts. L-COG coordinates the population forecasts with Lane County
and all cities in Lane County and their forecast was used in the Residential Land and Housing
Study. They also coordinate at the state level with the Oregon State Economist provides 20-year
statewide forecasts and coordinated regional forecasts.
3. Priority of Lands for UGB Expansions (ORS 197.298)
The Residential Land and Housing Study and proposed Metro Plan amendment do not call for
13 - Findings in Support of Metro Plan Amendments
Ordinance 5935
page 39
. expansion of the urban growth boundary.
4. ORS 197.296 Requirements
ORS 197.296 requires certain jurisdictions to provide for a 20-year housing need based on actual
developed densities in the past five years or since the last periodic review; to take measures
and/or expand the UGB, if needed; and to zone land appropriate for planned densities as
indicated by the market.
According to DLCD staff, the Eugene-Springfield metropolitan area does not have to meet the
requirements of ORS 197.296 at this time because these provisions must be met at periodic
review and the local periodic review process was initiated prior to passage of the legislation.
However, the guidebook, "Planning for Residential Growth": A Workbook for Oregon's Urban
Areas, does provide guidance on pre-existing Statewide Goal 10 requirements, as well as the new
requirements specific to ORS 197.296. The Metropolitan Residential Land and Housing Study
was conducted in a manner consistent with the tasks and steps laid out in the guidebook for the
following tasks:
. Inventory the supply of buildable residential lands
. Conduct a housing needs analysis
.
In addition, the Residential Land and Housing Study recommends policies and implementation
measures to increase densities, provide a greater mix of housing types, and monitor development
activity over time to determine the impacts of these measures. These policies and measures will
help ensure that the land in the existing urban growth boundary is sufficient to meet the needs of
the growing population over the next 20 years.
(c) Consistent With Goal 14 requirements.
The Residential Land and Housing Study and proposed amendments to the Metro Plan do not
recommend any expansion of the Urban Growth Boundary nor propose conversion of land from
rural to urban uses. See also findings under Goal 14.
The determination must include provision for "needed housing". As defined by OAR 660-08-
005( 11), "needed housing" means housing types determined to meet the need shown for housing
within an urban growth boundary at particular price ranges and rent levels; "Needed housing
also means housing that includes, but is not limited to:
(a) attached and detached single1amily housing and multiple family housing for both
owner and renter occupancy
.
The 1999 Technical Supply and Demand Analysis and ECONorthwestlLeland Consulting Group
market study consider and address each of the above housing types throughout the analysis.
14 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 40
Further the proposed policy recommendations addres,s and require the provision of each housing
type and a variety of housing for both renter and home ownership. 0
(b) Government assisted housing;
The 1999 Technical Supply and Demand Analysis and ECONorthwestlLeland Consulting Group
market study address owner, renter, and government assisted housing and policy direction for
these housing types and is included in the policy recommendations.
(c) Mobile home or manufactured dwelling parks as provided in ORS 197.475 to
197.490;
The ECONorthwestlLeland Consulting Group market study address mobile home or
manufactured dwelling parks on page 30 and 31.
(d) Manufactured homes on individual lots planned and zoned for single-family
residential use that are in addition to lots within designated manufactured dwelling
subdivisions.
The ECONorthwestlLeland Consulting Group market study considered and addressed
manufactured homes on individual lots. Both Eugene and Springfield allow them as permitted
use in all areas planned and zoned for single-family residential use.
OAR 660-08-010 Allocation of Buildable Land (Buildable Lands Inventory): ...The buildable
lands inventory must document the amount of buildable land in each residential plan
designation.
The 1999 Site Inventory Document and the 1999 Technical Supply and Demand Analysis
contain the buildable2 land analysis. As part of the inventory, the analysis considered various
prohibitions and constraints to development (See 1999 Technical Supply and Demand Analysis
section titled Undeveloped Residential Land Supply).
As part of the supply analysis, unbuildable land was identified and subtracted from all the supply
components. Unbuildable land included the following:
. Floodway
. In Eugene = Protected wetlands, wetland mitigation sites and other significant wetlands
2Buildable Land"- defined as residentially designated vacant and, at the option of the local jurisdiction,
redevelopable land within the Metro urban growth boundary that is not severely constrained by natural hazards
(Statewide Planning Goal 7) or subject to natural resource protection measures (Statewide Planning Goals 5 and
15). Publicly owned land is generally not considered available for residential use. Land with slopes of 25 percent or
greater unless otherwise provided for at the time of acknowledgment and land within the 100-year floodplain is
generally considered unbuildab1e for purposes of density calculations.
15 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 41
. In Springfield = Wetlands larger than 0.25 acres
. Land within easement of 230 KV powerlines
. Land within 75 feet of Class A stream or pond
. Land within 50 feet of Class B stream or pond
. Small irregularly-shaped lots were also subtracted from the total buildable land supply during
the adjustment to the land supply.
In addition, for each component of the land supply, an analysis of the following constraints was
conducted:
Constraints to Development
. Floodplain
. In Eugene = wetlands in the National Wetland Inventory or wetlands in the West Eugene
Special Area Study that were not a mitigation site or protected.
. In Springfield = Wetlands smaller than 0.25 acres in the Springfield Wetland Inventory
. Hydric Soils
. Slopes greater than 15 percent
The 1999 Technical Supply and Demand Analysis contains the detailed rationale used in
determining each of the development prohibitions and constraints and the level of development
assigned to vacant lands in each of the categories.
D,AR 660-08-020 Specific Plan Designations Required
( 1) Residential plan designations shall be assigned to all buildable land and shall be specific so
as to accommodate the varying housing types and densities indentified in the local housing needs
projection.
The 1999 Technical Supply and Demand Analysis contains the Housing Needs projection which
has been covered in earlier findings. For each housing type, a density assumption and
distribution by density range in the Metro Plan was determined. These are shown in the 1999
Technical Supply and Demand Analysis section titled Residential Land Demand. Based on the
overall analysis considering both the needs in the future and the available lands. The table in the
proposed Metro Plan amendments, Chapter III-A, shows that the need can be met within the
current urban growth boundary for the 20-year planning period.. No changes to the existing
Metro Plan diagram are necessary to accommodate this demand.
Based on the above analysis and the more detail analysis contained in the Joint Planning
Commissions Policy Recommendations Report, 1999 Technical Supply and Demand Analysis,
1999 Site Inventory Document, and the ECONorthwestlLeland Consulting Market Analysis, the
proposed amendments comply with Goal 10 and its Administrative Rule, OAR 660-08.
Goal 11 - Public Facilities and Services: To plan and develop a timely, orderly and efficient
arrangement of public facilities and services to serve as a framework for urban and rural
development.
16 - Findings in Support of Metro Plan Amendments
.
.
.
Ordinance 5935
page 42
The 1999 Technical Supply and Demand Analysis under the Service Availability section states
that public facilities and services are available to 6,782 acres or 72 percent of the buildable
residential land. Approximately 2,653 acres do not presently have public facilities and services
and will not for a period of time ranging from one to more than ten years. Based on this analysis,
the following policies are included in the proposed Metro Plan amendments:
Policy 4. Use annexation, provision of adequate public facilities and services, rezoning,
redevelopment, and in-fill to meet the 20-year projected housing qemand.
The policy provides direction to the cities, who are the providers of public facilities and services,
to meet the housing demand by, among other measures, provision of adequate public facilities
and services. This includes capital improvement programs and other measures for the sequential
extension of needed public facilities and services.
Policy 6. Endeavor to provide key urban services and facilities required to maintain a
five year supply of serviced buildable residential land.
This policy provides a time threshold for cities in the timing of extension of public facilities and
services to maintain a five year supply of serviceable lands.
Policy 7. Development shall be required to pay a greater share of the cost of extending
public services and infrastructure. The cities shall examine ways to provide
subsidies or incentives for providing infrastructure that support affordable
housing and/or higher density housing.
This clarifies the role of development in funding the provision of public facilities and services.
Policy 9. Promote higher residential density inside the urban growth boundary that
utilizes existing infrastructure, improves the efficiency of public services and
facilities, and conserves rural resource lands outside the urban growth
boundary .
This policy provides direction to capitalize on existing public facilities and services already in
place by planning for higher density in these areas. This will reduce the need or prolong the
timing of need to extend facilities and service to areas currently not serviced.
Policy 34. Coordinate local residential land use and housing planning with other
elements of this plan, including public facilities and services, and other local
plans, to ensure consistency among policies.
These policies require the coordination of the residential land and housing policies with other
applicable sections of the Metro Plan including provision of facilities and services. Another
work task of Periodic Review currently underway is the update of the Metro Public Facilities
Plan. The policy requires coordination of the policy direction in these proposed Metro Plan
17 - Findings in Support of Metro Plan Amendments
.
.
..
Ordinance 5935
page 43
amendments with that study.
The proposed policies listed above address the provisions of public facilities and services to
residential land. Therefore, the amendments comply with Goal 11.
Goal 12 - Transportation: To provide and encourage a safe, convenient and economic
transportation system.
The, type, density and location of housing can have an effect on the transportation system, both
locally and regionally. The proposed Metro Plan amendments include the following policies that
support Goal 12:
Policy 10. Generally locate higher density residential development near employment or
commercial services, in relationship to major transportation systems or within
transportation-efficient nodes.
Policy 12. 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 existing and
historic neighborhoods.
Policy 18. Encourage residential developments in or near downtown core areas in both
cities.
Policy 22. Expand opportunities for a mix of uses in newly developing areas and existing
neighborhoods through local zoning and development regulations.
The chief way residential land use policy can assist in meeting the transportation goal is by the
way future housing is developed. This includes location, density, housing type and mixed use
development. The above policies all provide direction to assist in creating a transportation-
efficient land use pattern that supports altern~tive modes such as transit and reduces dependence
on the automobile. Higher density housing allows transit to be more efficient and serve a greater
percent of the population. Locating density near shopping and employment, and downtown
reduces the need fot single-occupancy auto travel, thus reducing vehicle miles traveled (VMT).
Mixed use development where residential, business, and employment are co-mingled either on
one site or in close proximity reduces automobile trips. Therefore, the amendments comply with
Goal 12.
Goal 13 - Energy Conservation: To conserve energy.
The proposed policy direction in the amendments encourage higher density which will, because
of the structure type and reduced dwelling sizes, assist in meeting energy conservation goals.
Therefore, the amendments comply with Goal 13.
18 - Findings in Support of Metro Plan Amendments
.
'.
..
Ordinance 5935
page 44
Goal 14 - Urbanization: To provide for an orderly and efficient transition from rural to urban
land.
The Residential (and and Housing Study and proposed amendments to the Metro Plan do not
recommend any expansion of the Urban Growth Boundary nor propose conversion of land from
lUral to urban uses. Therefore, the amendments are consistent with Goal 14.
Goal 15 - WilIamette River Greenway: To protect, conserve, enhance and maintain the
natural, scenic, historic, agricultural, economic and recreational qualities of lands along the
\Villamette River as the Willamette River Greenway.
The Residential Land and Housing Study and proposed Metro Plan amendments do not make
,my changes to lands along the Willamette River or within the Greenway Boundary. As stated
\
under the Goal 5 findings, certain constrained lands such as lands along Class A streams, which
include the Willamette River, were addressed. In the case of Class A streams, all land within 75
feet was excluded from the vacant land inventory. Based on this and the lack of changes in the
status of lands within the Willamette River Greenway, the amendments are consistent with Goal
15.
Goals 16 - 19 (Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean
lResources ):
Not applicable to the Metro area.
Criterion #2: Eugene Code Section 9.128(3)(b), Springfield Development Code 7.070(3)(b),
and Lane Code 12.225(2)(b): Adoption of the amendment must not make the Metro Plan
internally inconsistent
The Residential Land and Housing Study and the joint planning commissions are recommending
a completely new Metro Plan element for Residential Land Use and Housing. The proposed
policy direction generally represents a continuation of existing policy direction in the current
Metro Plan. Policies have been updated, strengthened, or rewritten to be clear and concise and
do not create anu inconsistencies with other parts of the Plan. The changes in the Glossary are
not substantive; additions or modification were made to existing definitions that are out of date,
or, in the case of new definitions that are used in the revised Residential Land Use and Housing
Element. The other amendments, such as the footnote of new population projection are not
policy and only represent explanatory text.
l'undamental Principles of the Metro Plan
The proposed policy direction in the Residential Land Use and Housing Element will continue to
meet the overall Metro Plan fundamental principles of compact urban growth, and reducing
urban sprawl.
19 - Findings in Support of Metro Plan Amendments
Ordinance 5935
page 45
. _0 Plan Diagram
As noted in the evaluation under Criterion #1, the housing needs of the Metro area for the
planning period of 1995-2015 can be accommodated by vacant and redevelopable land within the
current urban growth bound,ary. No changes are needed to the existing Metro Plan Diagram.
I
Specific Elements of the Metro Plan
While the Residential Land and Housing Element stands as a separate and distinct section, the
proposed policy direction in the amendments was reviewed continually with other specific
elements of the Plan during its creation and review. In certain instances other policy direction in
specific elements of the Plan was used to guide analysis and policy setting. For example, in the
review of constrained lands, policy direction in the Environmental Resources element and
Willamette River Greenway, River Corridors, and Waterways element was used to guide how to
address constrained lands such as wetlands, sloped lands, waterways corridors, and floodway and
floodplain areas. The policy direction in the Transportation element calls for higher density,
growth in downtown areas, and encouraging development in proximity to transit. These same
goals are part of the policy direction in the proposed amendments to the Residential Element.
Thus, the amendments proposed have addressed and taken into account other elements of the
Metro Plan and are consistent with the policy direction of those elements.
-..
Other Sections of Metro Plan
A detailed analysis was done of the other sections of the Metro Plan that required changes due to
the proposed amendments and the findings of the 1999 Technical Supply and Demand Analysis.
These changes are included in the proposed amendments. In all other respects, there are no
inconsistencies between the proposed plan amendments and other sections of the Plan.
CONCLUSION
Based on the findings set forth herein, the Eugene and Springfield City Councils and the Lane
County Board of Commissioners concludes that the proposed amendments to the Metro Plan text
are consistent with relevant statewide planning goals adopted by the Land Conservation and
Development Commission; and adoption of the amendments will not make the Metro Plan
internally inconsistent.
-.
/
20 - Findings in Support of Metro Plan Amendments