HomeMy WebLinkAboutOrdinance 6178 07/17/2006
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ORDINANCE NO. 6178 (General)
AN ORDINANCE AMENDING THE MID-SPRINGFIELD REFINEMENT PLAN DIAGRAM BY
REDESIGNATING 5.32 ACRES OF LAND FROM LIGHT-MEDIUM INDUSTRIAL TO
COMMUNITY COMMERCIAL 'NODAL DEVELOPMENT AREA AND AMEND THE PLAN
TEXT TO IMPLEMENT TRANSPLAN NODAL DEVELOPMENT AREA 9C AND ALLOW THE
APPLICATION OF THE 'NODAL DEVELOPMENT AREA DESIGNATION AND ZONING
OVERLAY; ADOPTING A SEVERABILITY CLAUSE; AND DECLARING AN EMERGENCY.
THE COMMON COUNCIL OF THE CITY OF SPRINGFIELD FINDS THAT:
WHEREAS, Article 8 of the Springfield Development Code sets forth procedures for Metro Plan
diagram amendments; and
WHEREAS, on April 19, 2006 the applicant/owner of the subject tax lot initiated the following
Metro Plan diagram amendment:
Redesignate 5.32 acres from Light-Medium Industrial to Community Commercial INodal
Development Area, Case Number LRP 2006-00014, Tax Lot 05200, Assessor's Map 17-02-31-
00; and amend the plan text to implement TransPlan Nodal Development Area 9C and allow the
application of the INodal Development Area designation and zoning overlay.
WHEREAS, on June 20, 2006, the Springfield Planning Commission held a work session and a
public hearing to receive testimony and hear comments on this proposal. The Planning Commission
voted 3 in favor, 2 opposed, and 2 absent, to forward a recommendation of approval, with conditions to
the City Council; and
WHEREAS,on July 17, 2006, the Springfield City Council held a work session and a public
hearing to consider to receive testimony and hear comments on this proposal. The City Council is now
ready to take action on this proposal based upon the above recommendation and the evidence and
testimony already in the record as well as the evidence and testimony presented at this public hearing
held in the matter of adopting this Ordinance amending the Mid-Springfield Refinement Plan diagram and
text.
NOW THEREFORE, THE CITY OF SPRINGFIELD ORDAINS AS FOLLOWS:
Section 1: The above findings, and the findings set forth in Exhibit A attached hereto and
incorporated herein by reference are hereby adopted.
Section 2: The Mid-Springfield Refinement Plan designation of the subject property,
more particularly described in Exhibit A attached hereto and incorporated herein by reference, is
hereby amended from Light-Medium Industrial to Community Commercial INodal Development
Area.
Section 3: The Mid-Springfield Refinement Plan History Section is hereby amended by
adding a fourth paragraph that reads as follows:
"Since the adoption of the Mid-Springfield Refinement Plan in July, 1986, several
significant planning activities have occurred which have a direct impact on the
implementation policies in this Plan. These activities include the update of the Metro
Plan, adopted in April 1987; adoption of TransPlan in July, 2001; and adoption of Article
40 Mixed-Use Zoning Districts and Article 41 INodal Development Overlay District in
2002."
Section 4: Mid-Springfield Refinement Plan Policy 7. under Industrial Development
Policies is hereby amended to read as follows:
"Eliminate mixed-use plan designations involving industrial and residential uses, so as to
avoid the perpetuation of land use conflicts, except in Nodal Development Area 9C as
shown on the Potential Nodal Development Areas Map in TransPlan. In this case, the
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INodal Development Overlay District specified in Article 41 of the Springfield
Development Code shall be applied to the Light-Medium Industrial, Special Light
, Industrial, Heavy Industrial and/or Mixed Use Employment base zones."
Section 5: Mid-Springfield Refinement Plan Criterion 5. for Designating Industrial Land is
hereby amended to read as follows:
"Minimize areas where Industrial and Residential designations abut, except in Nodal
Development Area 9C as shown on the Potential Nodal Development Areas Map in
TransPlan."
Section 6: Mid-Springfield Refinement Plan Goal, under Commercial Development
Policies is hereby amended to read as follows:
"Encourage attractive and functional commercial development on commercially
designated land along Main and North 42nd Streets and 30th Street in Nodal Development
Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan."
Section 7: Mid-Springfield Refinement Plan Policy 2. under Commercial Development
Policies is hereby amended to read as follows:
"Encourage the development of nodal commercial shopping centers at the intersection of
minor arterials (example 32nd and 42nd Streets) and Main Street and 30th Street in Nodal
Development Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan. In
the latter case, the INodal Development Overlay District specified in Article 41 of the Springfield
Development Code shall be applied to the Neighborhood Commercial, Community Commercial,
Major Retail Commercial, General Office, Medical Support and/or Mixed Use Commercial base
zones."
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Section 8: Mid-Springfield Refinement Plan Criterion 3. for Designating Commercial
Land is hereby amended to read as follows:
"The 200 foot boundary for the Community Commercial plan designation may be
extended at the intersections of minor arterial streets and Main Street and the collector
street in Nodal Development Area 9C as shown on the Potential Nodal Development
Areas Map in TransPlan, provided that safe and efficient transportation facilities can be
provided."
Section 9 Policy 1. under Residential Development Policies of the Mid-Springfield
Refinement Plan is hereby amended to read as follows:
"Recognize the integrity of residentially-designated areas by removing the 'Mixed Use'
plan designation, except in Nodal Development Area 9C as shown on the Potential Nodal
Development Areas Map in TransPlan. In this case, the INodal Development Overlay
District specified in Article 41 of the Springfield Development Code shall be applied to the
Medium Density Residential, High Density Residential and/or Mixed Use Residential base
zones".
Section 10 Mid-Springfield Refinement Plan Policy 2. under Residential Development
Policies is hereby amended to read as follows:
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"Eliminate the incursion of industrial and commercial development into residentially-
designated neighborhoods by specifically designating land for these uses, except in Nodal
Development Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan. In
this case, the INodal Development Overlay District specified in Article 41 of the Springfield
Development Code shall be applied to the Medium Density Residential, High Density Residential
and/or Mixed Use Residential base zones."
Section 11: Mid-Springfield Refinement Plan Criterion 3c. for Designating Residential
Land is hereby amended to read as follows:
ORDINANCE NO. 6178
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"Generally the Medium Density Residential plan designation shall be applied under the
following circumstances:.... where designated exclusively Medium Density Residential (as
opposed to "Mixed Use") on the Metro Plan Diagram including Nodal Development Area
9C as shown on the Potential Nodal Development Areas Map in TransPlan;"
Section 12: 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 independent provision and that holding shall
not affect the validity of the remaining portion of this Ordinance.
Section 13: It is hereby found and declared that matters pertaining to the Mid-Springfield
Refinement Plan diagram and text amendment affect the public health, safety and welfare of the
City of Springfield and an Emergency is therefore declared and this Ordinance shall take effect
immediately upon its passage by the Council and approval by the Mayor.
ADOPTED by the Common Council of the City of Springfield by a vote of --.2... for and ~ (1 absent)
against, this 17t~ay of July , 2006.
APPROVED by the Mayor of the City of Springfield, thi
ATTEST:
,2006.
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City Recorder
REVIEWED & APPROVED
AS\TO FORM l
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DATE: ~_I-.::J J-_b-
OFFICE OF Ci I { }-\Tf Or:iNEY
ORDINANCE NO, 6178
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MEMORANDUM
CITY OF SPRINGFIELD
DATE OF HEARING: June 20, 2006
TO:
Springfield Planning Commission
PLANNING COMMISSION
TRANSMITTAL
MEMORANDUM
FROM:
Gary M. Karp, Planner III
SUBJECT: Metro Plan Diagram Amendment - Case Number LRP 2006-00013
Mid-Springfield Refinement Plan Diagramrrext Amendment - Case Number LRP 2006-00014
Springfield Zoning Map Amendment - Case Number ZON 2006-00020
Karl Mueller, Metro Planning, Applicant Representing Goodwill Industries
ISSUE
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Conduct a public hearing on the proposed Metro Plan diagram, Mid-Springfield Refinement Plan
diagram/text, and Springfield Zoning Map amendments and decide whether to advise the City Council to
approve, approve with conditions or deny the request.
DISCUSSION
The subject property is located on the west side of 30th Street, north of the Goodwill Industries Retail
Center. The subject property is 5.32 acres in size and is zoned Light-Medium Industrial with a Metro Plan
designation of Heavy Industrial and a Mid-Springfield Refinement Plan designation of Light-Medium
Industrial. The applicant is proposing to amend the Metro Plan and Mid-Springfield Refinement Plan
diagrams to Community Commercial/Nodal Development Area; amend the Mid-Springfield Refinement
Plan text to allow the INodal Development Area designation; and to amend the Springfield Zoning Map to
, Community Commercial/Nodal Development Overlay. The intent of these applications is to conv,erta day
care facility and the remaining portion of the subject property to commercial use. The review processes
for the three applications use similar criteria of approval. They have been cQmbined one staff report for
ease of review. The three applications are interrelated: the propo~ed amendments to the Metro and
Refinement Plan diagrams and the RefinementPlan text must be approved in order for the Zoning Map
amendment to be approved.
RECOMMENDA TION
Staff recommends approval of these applications, as conditioned, based on the attached findings.
ACTION REQUESTED
Advise the City Council, by motion and signature of the attached order and recommendation by the
Planning Commission Chairperson, to approve these applications, as conditioned, at their public hearing
on July 17, 2006.
ATTACHMENTS
Attachment 1: Vicinity Map
Attachment 2: Staff Report, Findings and Order
Att~chment 3: Exhibits Submitted by the Applicant
Attachment 4: Legal Description for the Zoning Map Amendment
Attachment 5: Trip Monitoring,Plan
ATTACHMENT
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ATTACHMENT 2
STAFF REPORT, FINDINGS AND ORDER
CITY OF SPRINGFIELD, DEVELOPMENT SERVICES DEPARTMENT
Applicant:
Karl Mueller, Metro Planning, Applicant, representing Goodwill
Industries
Requests: This is a consolidated application for amendments to the
Metro Plan diagram, the Mid-Springfield Refinement Plan diagram and
text and the Springfield Zoning Map involving one property consisting
of 5.32 acres of land
1.
Metro Plan Diagram Amendment Case Number lRP 2006-00013
proposes to change the current land use designation from Heavy
Industrial to Community Commercial/Nodal Development Area.
2.
Mid-Springfield Refinement Plan Diagram and Text Amendment
Case Number lRP 2006-00014 proposes to change the current
land use designation from Light-Medium Industrial to
Community Commercial/Nodal Development Area and amend the
plan text to implement TransPlan Nodal Development Area 9C
and allow application of the /Nodal Development Area
designation and zoning overlay. \
3.
Springfield Zoning Map Amendment Case Number ZON 2006-
00020 proposes to change the current zoning from Light-Medium
Industrial to Community Commercial/Nodal Development
Overlay.
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Case Numbers:
lRP 2006-00013
lRP 2006-00014
ZON 2006-00020
ProcedureType:
Type IV - Metro Plan
diagram amendment
Type IV - Refinement
Plan diagram/text
amendment
Quasi-judicial zone
change raised to a Type
IV procedure
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ATTACHMENT 1
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n,tr",. art 110 wonvmies tllat acrollJHlII.1' this product.
Uun asSWI,t aU resp(Jluibili tyJor any loss or damage arising
.fi"01II a/J)' error, omissio" (I' JDS; I;onol inaCamJ(l' oftllis prod/lct
WI: Light Medium Industrial
CC: Ccmmunity Commercial
MDR: tv'edil1ll Density Residential
LOR: Low Density Residertial
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SUBJECT SITE
Springfield, OR
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Goodwill Day Care West Side of 30t Street
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State Offices East Side of 30th Street
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Apartments East Side of 30th Street
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II. EXECUTIVE SUMMARY
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The applicant is proposing to amend the Metro Plan and Mid-Springfield.Refinement Plan diagrams to
Community Commercial/Nodal Development Area; amend the Mid-Springfield Refinement Plan text to
allow the INodal Development Area designation; and to amend the Springfield Zoning Map to Community
Commercial/Nodal Development Overlay. The intent of these applications is to convert the subject
property from an industrial designation and zoning to a commercial designation and zoning.
Normally, when there is a concurrent Metro Plan and refinement plan diagram amendment only a Metro
Plan amendment application is required because amending the Metro Plan diagram automatically
amends the refinement plan diagram. However, in this case, there is a discrepancy (discussed under
Property Description/Land Use History, below)between the Metro Plan (Heavy Industrial) and Mid-
Springfield Refinement Plan (Light-Medium Industrial) designations and since the Mid-Springfield
Refinement Plan is silent on Nodal Development Areas, a refinement plan text amendment is also
required to allow utilization of both the /Nodal Development Area designation and Community
CommerciallNodal Overlay zoning.
There are two key criteria of approval that must be met before staff can ask the Planning Commission
and City Council to consider the approval of a Metro Plan amendment and subsequently refinement plan
and zoning map amendments:
1) Compliance with Statewide Planninq Goal 9. "Economic Development". The applicant submitted
information stating the Springfield Commercial Lands Study confirms there is a shortage of available
vacant commercial land and the Metropolitan Industrial Land Inventory confirms the supply of
industrial land exceeds an adequate supply. Staff supports this finding. However, staff sees an 01'1- , .
going trend involving the piece-meal conversion of "development ready" industrial land to commercial
use because there appears to be more demand for commercial than industrial development in' '
Springfield today. Both the Planning Commission and City Council should consider the impact of
piece-meal conversions on the future availability of developable industrial land, regardless of current
trends: The Commercial Industrial Buildable Lands Study which is currently underway is a
methodology that may assist both review bodies, but has not been completed as of the date of this
staff report. This "trend" should be a discussion item only and should not affect staffs
recommendation to approve theses applications, as conditioned.
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2) Compliance with Statewide Planninq Goal 12. "Transportation". The applicant voluntarily submitted a
"trip cap" to demonstrate compliance with this criterion and argues in favor of mixed use development
within a potential nodal development area.
a) The trip cap is an acceptable traffic capacity limitation tool allowed in the Transportation Planning
Rule. The trip cap establishes a "worst case" scenario for trips generated by the current zoning, in
this case industrial. Trips generated by future commercial uses cannot exceed the established trip
cap. The proposed trip cap was reviewed and accepted, as conditioned, by Gary McKenney,
Springfield Transportation Planning Engineer and Thomas Boyatt from the Oregon Department of
Transportation's Springfield office.
b) The Oregon Transportation Planning Rule requires metropolitan areas with populations under
one million to plan for a 5 percent per capita reduction in vehicle miles traveled (VMT) over the 20
year planning horizon. The revised TransPlan adopted by Springfield, Eugene and metro Lane
County in 2001 allows for Nodal Development Areas as an alternative strategy to meet the VMT
standard. The City Council selected and adopted the Nodal Development Area concept after
reviewing a preliminary assessment of several potential Nodal Development Area sites in 2003
(7B in Riverbend; 8A in Glenwood; 8B in Downtown Springfield; 9A in Mohawk; and 9H and 9J in
Natron). The TransPlan Potential Nodal Development Areas map shows that the Goodwill site is
within the boundary of Proposed Nodal Development Area 9C. Area 9C has not been "officially" .
approved by the City Council. The 5.32 acre Goodwill site represents a small portion of the
potential Nodal Development Area 9C which contains approximately 70 acres of land. The
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existing Medium Density Residential and Community Commercial zoned and designated
properties within Nodal Development Area 9C have been developed or are currently under
construction. The industrial zoned and designated portioT}s of the property are still not developed.
Since the applicant is proposing to amend the applicable 'plans and zoning from industrial to
commercial, the INodal Development Area designation and zoning overlay applications will mmlY
only to the subiect property. However, the proposed Mid-Springfield Refinement Plan text
amendment submitted by the applicant has been rewritten by staff to apply to all of "Potential"
Nodal Development Area 9C. not iust the subiect property. This is being done now so that the
Mid-Springfield Refinement Plan text will not have to be amended again in the future when other
property owners within the boundaries of Nodal Development Area 9C want to implement the
INodal Development Overlay District or if the City Council directs staff to implement the remainder
of the node as a work plan item. The use of the /Nodal Overlay District specified in Springfield
Development Code (SDC) Article 41 allows the implementation of the Community Commercial
zoning district, subject to the Mixed Use Commercial use and design standards contained in SDC
Sections 40.020,40.090; 40.100 and 40.110.
II PROPERTY DESCRIPTION/LAND USE HISTORY
Property Description. The subject property is located on the west side of 30th Street, north of the
Goodwill Industries Retail Center, and contains a day care center at the south end (Assessor's Map #17-
02-31-00, Tax Lot 05200). The remainder of the property is vacant. The subject property is 5.32 acres in
size and is flat. The applicant states: "There are no jurisdictional wetlands present on the subject
property as all wetland issues were resolved during the Jeff parker Subdivision process. The site is
development ready and is fully served with urban services." Staff concurs with the applicant's
statements.
Land Use History. The subject property is within the Mid-Springfield Refinement Plan, adopted in July
1986. At that time, the subject property was part of a larger 19.83 acre tract of land that had a Metro/Mid-
Springfield Refinement Plan designation of Heavy Industrial and Heavy Industrial zoning. In 1991, there
was a Metro Plan diagram amendment (Jo. No. 90-12-201) from Heavy Industrial to Light-Medium
Industrial involving the subject property. In 1992, there was a Mid-Springfield Refinement Plan
designation and concurrent zone change amendment fromfHeavy Industrial to Light~Medium Industrial
(Jo. No. 92-01-006) involving the same property. Note: The most recent Metro Plan diagram dated
04/08/04 still shows the subject property designated Heavy Industrial, even though there are City
Ordinances amending the Metro Plan from Heavy Industrial to Light-Medium Industrial (5585) and the
Mid-Springfield Refinement Plan and zone change from Heavy Industrial to Light Medium Industrial (5615
and 5616). In 2002 there was a Partition (SUB2002-11376) that reconfigured the Goodwill and Dynea
properties on the west side of 30th Street. Parcel 2 of that Partition application is the subject property.
The Partition Plat Number is 2005-P1922.
1111. PROPOSED DEVELOPMENT
The applicant states that: ".. .the immediate result of the approval of these applications will be the siting
and location of a Department of Motor Vehicles facility in the structure that currently houses the day care
facility auxiliary to the retail Goodwill store located on the adjacent property.... This would allow the State
Department of Motor vehicles to locate a licensing facility in the structure currently providing day care
services for the employees of the Goodwill on the adjacent tax lot. Springfield requires a DMV facility of
this type and this site preferred by the State Department of Motor Vehicles. The site is a logical location
for the DMVoffice as other State offices are located across from the proposed DMV location. Eventually,
approval of the Plan Diagram Amendment and concurrent Legislative Zoning Map Amendment and
Refinement Plan Text amendment will allow the remainder of the subject parcel to develop commercial
and office uses that would serve the nearby medium density residential housing, future industrial
development in the area and the greater Springfield area."
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The applicant .continues:
"The subject property is particularly appropriate for a Plan Diagram Amen'dment and concurrent
Legislative Zoning Map Amendment because the area in which the subject property is located presents
the City of Springfield with a nodal development opportunity.... Approval of the Plan Diagram Amendment
would result in an area characterized by a mix of uses... including: Community Commercial (29.4%);
Heavy Industrial (10%); Light Medium Industrial (37.75%); and, Medium Density Residential Development
(22.8%).... The proposed 'potential nodal development area' will also be conveniently near the planned
Ex. extension."
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IV. TYPE OF METRO PLAN AMENDMENT
This Metro Plan applieation involves the site-specific amendment of the Metro Plan diagram from Heavy
Industrial to Community Commercial/Nodal Development Area. This Metro Plan amendment is a Type II
amendment as defined in SDC Section 7.030 because it does not have "regional impact" by:
"(a) Changing the urban growth or the jurisdictional boundary of the Metro Plan because the
subject property is within the city limits;
(b) Requiring an exception to a State-wide goal; and
(c) Requiring a non-site specific amendment of the Metro Plan text."
This Metro Plan amendment is a Type II amendment as defined in SDC Section 7.030 because it is a site
specific:
"(a) Amendment of the Metro Plan diagram; and
(b) Is a site specific text amendment (Mid-Springfield Refinement Plan)."
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Type of Metro Plan Amendment Conclusion and Finding:
Springfield is the "home city" for this proposal because the subject property is located within the city limits
and the application does not have regional impacts. Therefore, the consideration of the Metro Plan
amendment request is the exclusive responsibility of the Springfield City Council.
V. MID-SPRINGFIELD REFINEMENT PLAN TEXT AMENDMENT - PROPOSED TEXT
Commentary: The applicant submitted the fo/lowing for the proposed Mid-Springfield Refinernent Plan
text arnendrnent but did not state ~1/here in the Mid-Springfield Refin.sment Plan the proposed text should
go.
'The City shall recognize that the area designated as TransPlan Node 9C shall be appropriate for Nodal
Development and a Nodal Development Over/ay District (Article 41) to the area...."
Commentary: The proposal offers staff an opportunity to arnend Mid-Springfield Refinement Plan text to
implement the ItJoda! Development Overlay District vvithin the boundaries of t.Joda! D9ve!opment Area
9C', Therefore, staff recornrnencis arnending the foilo~'ving tvtkf-Sprfngnef::j R1efinernent Plan Sections:
His/olY Industrial Development Policies; CommerGiai Developrnent Policies: and Residential
Development Policies, Amended text is undGriined,
Commentary: T/'ie "Histo!y" Section of the Pian is amended to explain the reasons for thefotlowing text
an7end!ne[1ts. AU proposed arnending text is ~lJ].Q?lliflf!si.
History
Since the adoption of the Mid-Sprinqfield Refinement Plan in Julv. 1986. several siqnificant planninq
activities have occurred which have a direct impact on the implementation policies in this Plan. These
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activities include the update of the Metro Plan. adopted in April 1987; adoption of TransPlan in July. 2001;
and adoption of Article 40 Mixed-Use Zoninq Districts and Article 41 /Nodal Development Overlay District
in 2002.
Commentary: The.lvri.X:Efd Lise de51gnation c/t2d in the current text be!ov/ a,op/fed tJ the Adan1s P1at area
no!th of tl?e sut/eel propt1!1y, Tllis vias 8 predorn/nantiy resider-dial ar~;a that v~!as. f}eing t?,lncroacheci upon
tiY jn.clustr/a/ S{Jot zoning, One intent of the Ivfic!-S'pringfiefej l~efjnen-'ent F-'fan was ie remedy that situation.
;\1ixeq Use dSi/s/t)pn1ent 11::.7.::'8 8 difJ":erent corl!Jotatio.n today' then in 1986. Propos.e:d lnixed use
d.e.ve/oiJnlent !77USt conl{Jly VIt.'jtll aclo{:Jted ciesi,qn standards tlist j.)(ovide forn:ixfng resic.!!3ntf{3!: industria!
and cornrnercia! devff!O{)tnents to al/olrv vvorkars to liv'e near their place of ernplo..v!nent. .The proposed text
arnendrnent does ncd ct~ange ttle original intent of Industrial F:\?!icy 7, it does a!fovv for t.he in7p/.en?entation
of TransF'jan t'vocal Dev.'6:lopn7snt /\r83 9C arid 2/JpJJcabie .SDC: a'eve/opJTient standards.
Industrial Development Policies
Policy 7. Eliminate mixed-use plan designations involving industrial and residential uses, so as to avoid
the perpetuation of land use conflicts. except in Nodal Development Area 9C as shown on the
Potential Nodal Development Areas Map in TransPlan. In this case. the /Nodal Development
Overlav District specified in Article 41 of the Sprinqfield Development Code shall be.applied to
the Liqht-Medium Industrial. Special Light Industrial. Heavy Industrial and/or Mixed Use
Employment base zones.
Criteria for Designating Industrial Land
5. Minimize areas where Industrial and Residential designations abut. except in Nodal Development
Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan.
Commentary: TransPlan was amended in 2001 sho\iving P.JodaI Development Area 9c that inciudes the
subject property. The 200 foot limitation for Community Commercial zoning on the north side of tv1ain
Street was estahlished in the 1960's when this area was annexed to Springfield. The Mid-Springfield
R .. .....(. ,..'" r .. . / . I 4?nd Sf t
,6nnemem r'lan made {Xov/slon ror tne pOSSIIJ e expansion or commelDB. zOning a ong '- . ,ree.
hovvevel', with the implementation of Nodal Development Area ge, provision must be made to allow for
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In8 poss/{) e expansion 0 coromerCfa uses 210ng -'v" 0:1-eei W,IIC 'I /s c,aSSiTiec as a cOlfeelor.
Commercial Development Policies
Goal: Encourage attractive and functional commercial development on commercially designated land
along Main and North 42nd Streets and 30th Street in Nodal Development Area 9C as shown on
the Potential Nodal Development Areas Map in TransPlan.
Policy 2. Encourage the development of nodal commercial shopping centers at the intersection of minor
arterials (example 32nd and 42nd Streets) and Main Street and 30th Street in Nodal Development
Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan. In the latter'
case. the /Nodal Development Overlay District specified in Article 41 of the SprinQfield
Development Code shall be applied to the Neiqhborhood Commercial. Community Commercial,
Maior Retail Commercial, General Office. Medical Support and/or Mixed Use Commercial base
zones:
Criteria for Designating Commercial Land
3. The 200 foot boundary for the Community Commercial plan designation may be extended at the
intersections of minor arterial streets and Main Street and the collector street in Nodal Development
Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan, provided that safe
and efficient transportation facilities can be provided.
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~4ree gC and S;o;)//cab/a sac d-eve/o.fJ!neni stcrncJards.
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Residential D~velopment Policies
Policy 1. Recognize the integrity of residentially-designated areas by removing the "Mixed Use" plan
designation. except in Nodal Development Area 9C as shown on the Potential Nodal
Development Areas Map in TransPlan. In this case. the INodal Development Overlay District
specified in Article 41 of the Sprinqfield Development Code shall be applied to the Medium
Density Residential. Hiqh Density Residential andlor Mixed Use Residential base zones.
Policy 2. Eliminate the incursion of industrii?1 and commercial development into residentially-designated
neighborhoods by specifically designating land for these uses. except in Nodal Development
Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan. In this case.
the INodal Development Overlay District specified in Article 41 of the Sprinqfield Development
Code shall be applied to the Medium Density Residential, High Density Residential and/or
Mixed Use Residential base zones.
Criteria for Designating Residential Land
3. Generally the Medium Density Residential plan designation shall be applied under the following
circumstances:
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c. where designated exclusively Medium Density Residential (as opposed to "Mixed Use") on the
Metro Plan Diagram includinq Nodal Development Area 9C as shown on the Potential Nodal
Development Areas Map in TransPlan;
I VI. PROCEDURAL REQUIREMENTS
Procedural requirements for: Metro Plan diagram amendments are described in SDC Article 7;
Refinement Plan diagram and text amendments are described in SDC Article 8; Springfield Zoning Map
amendments are described SDC Article 12; and notice requirements are described in SDC Article 14. '
SDC Article 7 indicates that the City Councilor a citizen can initiate Metro Plan diagram amendments.
These amendments of are reviewed under a "Type IV" procedure and require public hearings before the
Planning Commission and the City Council. Type IV procedures are detailed in SDC Section 3.100.
SDC Article 8 indicates that the Planning Director, Planning Commission, City Council or a citizen can
initiate refinement plan diagram and text amendments. These amendments are reviewed under a "Type
IV" procedure and require public hearings before the Planning Commission and the City Council. Type IV
procedures are detailed in SDC Section 3.100.
SDC Article 12 indicates that the Planning Director, Planning Commission, City Council or a citizen can
initiate Zoning Map amendments. These amendments are reviewed under a "Type IV" procedure when
combined with a Metro Plan diagram amendment and require public hearings before the Planning
Commission and the City Council. Type IV procedures are detailed in SDC Section 3.100.
SDC Section 14.030(2) requires that legislative landuse decisions be advertised in a newspaper of
general circulation, providing information about the legislative action and the time, place and location of
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the hearing. If' addition, notice is required to be mailed to' all property owners and occupants within 300
feet of the subject property.
Procedural Requirement Conclusion and Findinqs:
Metro Planning, representing Goodwill Industries has initiated these applications. The Metro Plan diagram
and Mid-Springfield Refinement Planltext amendments are a Type IV review procedure and the quasi-
judicial Zoning Map amendment has been raised from a Type III review procedure to a Type IV review
procedure.
"Notice of Proposed Amendment" was mailed to the Department of Land Conservation and Development
(DLCD) on May 4,2006, alerting the agency of the City's intent to amend the Metro Plan diagram and
Springfield Zoning Map. The notice was mailed more than 45 days in advance of the first evidentiary
hearing as required by ORS 197.610.
Referral of the proposed Metro Plan amendment was sent to Eugene and Lane County on May 25, 2006
as specified in SDC Section 7.050.
Notice of the public hearings concerning these applications was published on June 9, 2006 in the
Springfield News, advertising both the hearing before the Springfield Planning Commission on June 20,
_ 2006 and the City Council on July 17, 2006. The content of the notice followed the direction given in
Section 14.030 (2) of the SDC for legislative actions.
.
Notice of the public hearings concerning these applications was mailed to property owners and residents
within 300 feet of the subject property on June 9, 2006 advertising both the hearing before the Springfield
Planning Commission on June 20, 2006 and the City Council on July 17, 2006. The content of the notice
followed the direction given in Section 14.030 (2) of the SDC for legislative actions and the direction given
in ORS 227.186.
Procedural requirements described in SDC Articles 7, 8,12 and 14 have been followed. Notice
requirements established by DLCD for legislative applications been followed.
I VII. DECISION CRITERIA AND FINDINGS
Note: The Metro Plan diagram, Mid-Springfield Refinement Plan diagram/text and Zoning Map
amendments have been combined into one staff report for ease of review. All three applications have
criteria requiring consistency with State-wide Planning Goals and two have criteria requiring consistency
with Metro Plan policies. Rather than repeat these criteria for each application, they will be addressed
only once and then referenced where appropriate. Criteria that are different will be addressed separately;
the end result will be that all applicable criteria will have been addressed.
VIII. METRO PLAN AMENDMENT CRITERA AND FINDINGS
Article 7 describes the criteria tobe used in approving a Type II Metro Plan amendment. SDC Section
7.070(3) states that "The following criteria shall be applied by the City Council in approving or
denying a Metro Plan amendment application: (a) The amendment must be consistent with the
relevant statewide planning goals adopted by the Land Conservation and Development
Commission; and (b) Adoption of the amendment must not make the Metro Plan internally
inconsistent. "
.
SDC Section 7.070(3) "(a) The amendment must be consistent with the relevant statewide planning
goals adopted by the Land Conservation and Development Commission; and"
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GOAL 1: CITI~EN INVOLVEMENT
"To develop a citizen involvement program that insures the 9Pportunity for citizens to be involved
in all phases of the planning process." ('
.
Applicant's Submittal:
"Springfield Development Code 7.080 provides that Plan Diagram Amendments are subject to public'
hearings before the Planning Commission and City Council. This ordinance establishing the procedure
under which these types of land use decisions are reached ensures citizen involvement consistent with
this statewide planning goal. "
Staff's Response:
Goal 1 requires a citizen involvement program. The City has an acknowledged citizen involvement
program as well as an acknowledged Development Code, both of which identify and require citizen
involvement for all land use and limited land use decisions. Metro Plan amendments require initial public
hearings before the Planning Commission 8[ld City Council. Notice of these hearing was provided to the
land Conservation and Development Commission 45 days prior to the initial evidentiary hearing. Notice
was printed in the newspaper and mailed to all property owners within 300 feet of the subject property10
days before the first evidentiary hearing. The staff report and application were available for viewing or
purchase 7 days prior to the initial evidentiary hearing. All interested parties were welcome to attend
these meetings and provide oral or written testimony. In addition, Metro Plan amendment was referred to
the City'of Eugene and lane County to allow those governments the opportunity to comment.
Staff Findinq:
These applications comply with Goal 1 because they are being reviewed under an acknowledged citizen
involvement program.
.
GOAL 2: lAND USE PLANNING
liTo establish a land use planning process and policy framework as a basis for all decision and
actions related to use of land and to assure an adequate factual base for such decisions and
actions. " '
Applicant's Submittal:
"The purpose of this Statewide Planning Goal is to establish a land use policy framework as a basis for all
decisions and to ensure that all land use decisions have an adequate basis in fact. The approval process
for this type of application is set forlh in Springfield Development Code 7.080 and 7.070(3) and other
applicable code sections ensure compliance with the statewide planning goal. "
Staff's Response:
Goal 2 requires comprehensive pfans to be consistent with statewide goals and that implementation of
plans, including regulation, amendment and land use decisions are internally consistent with
acknowledged comprehensive plans. This Goal requires comprehensive plan amendments to have an
adequate factual basis. The Metro Plan and the SDC contain guidelines and regulations for
amendments, including making a distinction between the "type" of Metro Plan amendment (either a I or a
II), who mayor must participate as decision-makers (Home City, Regional Impact), and how each level of
amendment is processed.
Additionally, various adopted refinement plans, including the Mid-Springfield Refinement Plan, and
specific area plans, including TransPlan, provide more detailed direction for planning under the umbrella
of the Metro Plan. TransPlan guides regional transportation system planning and de.velopment in the
.
4-12
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.
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Eugene-Springfield area. TransPlan was last amended in December 2001 with the goal of reducing
vehicle miles traveled. Consistent with this goal, the applicant is proposing to apply the Metro Plan
"INodal Development Area" land use designation to the subject. This land use designation
emphasizes "n. a mix of diverse and compatible land uses and public and private improvements
designed to be pedestrian and transit oriented". This proposal also includes a Mid-Springfield
Refinement Plan diagram from Light-Medium Industrial to Community Commercial/Nodal Development
Area and a Springfield Zoning Map amendment from Light-Medium Industrial to Community
Commercial/Nodal Development Overlay District. Finally, there is a Mid-Springfield Refinement Plan text
amendment to implement TransPlan Nodal Development Area 9C.
As the hearing process evolves from the Planning Commission to the City Council, the record of the
hearings includes all testimony and factual evidence intended to support the decision. The SDC requires
affirmative findings in support of the applicable criteria in order to approve these applications.
Staff Findin~:
These applications comply with Goal 2 because the SDC requires consistency between the State-wide
Planning Goals, the acknowledged Metro PI.i3n, adopted refinement plans and special area plans and the
zoning.
GOAL 3: AGRICULTURAL LAND
"To preserve and maintain agricultural lands."
Goal 3 defines "agricultural lands" by stating, in part, that they: "...do not include land within
acknowledged urban growth boundaries or land within acknowledged exceptions to Goals 3 or 4."
Applicant's Submittal:
"No agricultural lands as defined by state statute are involved in this request; thus this Goal is not directly
applicable to the proposal. To the extent that this goal is relevant, Statewide Planning Goal 3 intends to
protect agricultural lands from urban encroachment and the conversion of agricultural lands to urban
uses. This proposal furthers the intent of this Goal. The proposal is for infill development and intensifies
the use of vacant and underuti/ized land within the urban growth boundary of Springfield. This type of
development relieves pressure on the agricultural land base. Th~ proposal is consistent with this goal."
Staff's Response:
The subject property is located within the city limits on land planned and zoned for urban use. The City
does not have any agricultural zoning districts, either within its city limits or within the urban growth
boundary. -
Staff Findin~:
Goal 3 does not apply to these applications because the subject property is within Springfield's city limits.
GOAL 4: FORESTLANDS
"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 on forest land consistent with
sound management of soil, air, water, and fish and wildlife resources and to provide for
recreational opportunities and agriculture."
4-13
Applicant's Submittal:
.
"No forest lands as defined by state statute are involvedin this re.quest; thus this Goal is not directly
applicable to the proposal. To the extent that this goal is relevant, Statewide Planning Goal 4 intends to
protect forestlands from urban encroachment and the conversion of forest lands to urban uses. This
proposal furthers the intent of this Goal. The proposal is for infill development and intensifies the use of
vacant and underutilized land within the urban growth boundary of Springfield. This type of development
relieves pressure on the agricultural land base. The proposal is consistent with this goal."
Staffs Response:
The subject property is located within an acknowledged urban growth boundary. Goal 4 does not apply
within urban growth boundaries.
Staff Findinq:
Goal 4 does not apply to these applications because the subject property is within Springfield's city limits.
GOAL 5: NATURAL RESOURCES, SCENIC AND HISTORIC AREAS, AND OPEN SPACES
"To protect natural resources and conserve scenic and historic areas and open spaces."
Applicant's Submittal:
"No inventoried Goal 5 resources are present on the subject property. The wetlands indicated on the
City's wetlands inventory were adequately mitigated during the Jeff Parker Subdivision process. "
Staffs Response:
.
Goal 5 protection begins with an acknowledged inventory of Goal 5 resources and then proceeds through
an economic, social, environmental and energy analysis to determine whether the resource should be
protected from conflicting uses; limit conflicting uses; or allow conflicting uses fully (OAR 660-016-0010).
The City has an acknowledged historic structures inventory, a local wetland inventory and recently
adopted a natural resources inventory that considered uplands, wildlife' habitat and riparian corridors.
The subject property has been planned and zoned for intensive urban development and use since the'
Metro Plan was acknowledged in 1982 and the Mid-Springfield was adopted (July 1986) and amended
(1992). There are no historic structures, uplands, wildlife habitat or riparian corridors on the subject
property. The wetland issue raised by the applicant was addressed during the review of the Jeff Parker
Subdivision. Goal 5 now has no direct or indirect applicability to the subject property.
Staff Findinq:
Goal 5 does not apply to these applications because there are no inventoried resources on the subject
property
GOAL 6: AIR, WATER AND LAND RESOURCES QUALITY OAR 660-015-0000(6)
"To maintain and improve the quality of the air, water and land resources of the state."
Applicant's Submittal:
"The purpose of this goal is to improve and maintain the quality of the air, water and land resources of the
state. The Plan Diagram Amendment and concurrent Legislative Zoning Map Amendment further this
statewide planning goal. The area in which the subject property is located will have many of the .
characteristics of a node and will result in a nodal type development pattern. The proposal will encourage
infi" and compact development facilitating the location of commercial services near existing medium
4-14
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density resideptial development and future industrial uses that can reduce automobile trip frequency and
duration; the proposal will provide opportunities for bicycle or pedestrian trips. Development of the type
proposed here will maintain the air resources of the state by reducing trip frequency and duration and by
promoting intill development...." .
Staff's Response:
The proposed Metro Plan diagram, Mid-Springfield Refinement Plan diagram and text and Springfield
Zoning Map amendments affect primarily commercial usesldevelopment that will require compliance with
mixed use design standards specified in SDC Article 40 and use standards specified in SDC Section
41.020(2) that include the prohibition of certain auto related uses such as service stations. Any new use,
re-use or expansion of use on the subject property is subject to the development permitting and approval
process of the SDC; various building safety codes and the Public Works Design Manual for on-site storm
water management; and other applicable state and federal regulations.
In addition, the subject property is across the street from a portion of the Q Street Floodway as shown on
the Water Quality Limited Waterway Map. This watercourse is part of the City's stormwater management
system. However, site drainage issues will 'be addressed during the Site Plan Review or Site Plan
Modification application process. No specific condition will be required for this issue.
Finally, the City has an adopted drinking water protection plan and overlay zone requiring observance of
certain development standards and prohibitions of specific chemicals and chemical storage. Portions of
the subject property are within 10-20 year time of travel zone and are therefore, subject to the Drinking
Water Protection Overlay District standards, regardless of plan designation or zoning. Site specific
drinking water protection issues are addressed during the application review process (SDC Articles17
Drinking Water Protection Overlay District and Article 31 Site Plan Review).
.
Staff Findin~:
These applications comply with Goal 6 because of the limitation of certain auto related uses by
implementing the/Nodal Overlay District and the requiremer)ts currently in place concerning stormwater
management and to protect the City's drinking water supply, 95 percent of which is from groundwater.
GOAL 7: AREAS SUBJECT TO NATURAL HAZARDS
"To protect people and property from natural hazards."
Applicant's Submittal:
"This statewide planning goal is intended to minimize the risk of hazards to human health and the risk of
loss of human life. The goal also intends to minimize costs associated with redeveloping after a natural
disaster by restricting development in areas that are prone to natural disasters and hazards. The subject
property is not at ant risk from natural disaster that does not apply area wide."
Staff's Response:
.
Goal 7 requires development subject to damage or that could result in loss of life shall not be planned nor
located in known areas of natural disasters and hazards without appropriate safeguards. These
safeguards are based,on inventories of these known natural disasters and hazards. Sites with these
qualities are generally limited to the City's flood plain and steep slopes. The subject property is flat and is
not located within a f1oodway. Goal 7 has no direct or indirect applicability to the subject property.
Staff Findinq:
Goal 7 does not apply to these applications because the subject property is not located within an
inventoried hazard area.
4-15
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."
Applicant's Submittal:
'The proposed Metro Plan Amendment would not affect recreation or recreation facilities in the area of
the proposal. To the extent this goal is applicable, there are open spaces within easy walking and
bicycling distance from almost anywhere in the node."
Staff's Response:
Willamalane Parks and Recreation District is the local agency responsible for park planning within
Springfield's city limits and Urban Growth Boundary. Willamalane's Comprehensive Plan (WCP) was
adopted by the,City as the acknowledged Goal 8 comprehensive planning element on November 14,
2004. There are no existing or proposed parks within the boundary of Nodal Development Area 9C.
Tyson Park, a neighborhood park, is nearby to the east and- the subject property is within the parks
service area as shown on WCP Map 5. OnJhe south side of Main Street is the sports center that
contains an indoor sports facility and outdoor playing fields. Additionally, all of the currently zoned and
designated MDR land within proposed Nodal Development Area 9C is developed in accordance with the
public/private open space standards found in SDC Article 16.
The Metro Plan diagram amendment application proposes to change the subject property from Heavy
Industrial to Community Commercial/Nodal Development Area and the Mid-Springfield Refinement Plan
and Springfield Zoning Map amendment from Light-Medium Industrial to Community Commercial/Nodal
Development Area. The use table in SDC Section 41.020 states that property zoned Community
Commercial within the INDO district must comply with those uses permitted in the Mixed-Use Commercial
(MUG) District as specified in SDC Section 40.020. Residential uses are allowed in the MUC District. If
residential development occurs, that development uses will be served by park/recreation facilities.
.
Staff Findinq:
These applications comply with Goal 8 because there are nearby park facilities that serve current and
may serve future residential development.
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 citizens."
Applicant's Submittal:
"The site has the potential to provide needed commercial services, office uses and employment for the
medium density residential housing area directly east of the subject property. There is a shortage of
suitable commercial sites within the Springfield UGB to meet the long-term demand for commercial/and,
as indicated by the Springfield Commercial Lands Study (February 2000) (hereinafter SCLS). The
projected deficit of commercial land varies depending on the absorption rate estimate used to calculate
demand, however, a very conservative estimate at the time of publication of the SCLS was 158 acres. It
is likely that the shortage has grown larger since the time of publication. At the time of publication of the
SCLS the supply of vacant commercial land was at best a five year supply and was conceivably as little
as a two year supply. Using either estimate, it is clear that by today, the supply of vacant commercial
land in Springfield has been largely exhausted. This shortfall can result in greater competition, and can
impede the potential for healthy economic development, as businesses and retail are forced to locate
outside Springfield due to a lack of suitable sites. The deficit of commercial lands does not conform to
Statewide Planning Goal 9 which requires jurisdictions to maintain an adequate supply of commercially
zoned lands to meet projected demand for commercial land through the planning period. 11
.
4-16
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.
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"...Comprehensive plans and the jurisdictions implementing them are required to '[p]rovide for at least
an adequate supply of sites of suitable sizes, types, locations, and service levels for a variety of
industrial and commercial uses' throughout the planning period. The proposal furthers the intent of this
Statewide Planning Goal by helping ensure that an adequate amount of land is available to meet future
demand for commercial and industrial development.
A. The Supply of Commercial Land is not Adequate to Meet Demand Through the Planning Period
Even assuming a best case scenario, the current supply of commercial land within Springfield's UGB is
not sufficient to meet projected demand through the planning period. The detailed supply/demand
analysis undertaken as part of the SCLS revealed a need for a minimum (emphasis added) of 255 acres
of commercial land to the year 2015 based on a conservative absorption rate of 17 acres per year (SCLS
pp. ii). The SCLS noted that as of the date of publication there were 85 acres of vacant and 12 acres of
redevelopable land within the City's UGB, a total of 97 acres. (SCLS, pp. ii) Assuming (incorrectly) that
these sites were all constraint free and could adequately meet the demand for a variety of site size, type
and location and that the absorption rate will only be 17 acres/year, the 97 acre inventory was slightly
more than a five year supply from the date of publication (2000); it is now Spring 2006 and if these
projections were correct the supply has been exhausted. Even assuming the best possible conditions, (Ei
slow absorption rate, constraint free sites, and that the existing inventory contained sufficiently diverse
sites to meet diverse demand) the land base was not even close to meeting projected demand through
2015.
Even at the time of publication of the SCLS, the actual deficit was likely much more acute than the
discussion supra indicates. The vacant land inventory indicated that there were 85 acres of vacant
readily developable commercial land within the Springfield UGB. However, the SCLS noted that '[sjize,
location and service limitations further limit this inventory. Roughly 30 acres are contained in the
former Springfield airport site, [sic] and over 18 are in unserviced areas of Jasper/Natron and
Mckenzie/Gateway.' (SCLS, pp. ii) After removing parcels of the approximate size of the subject parcel
from the inventory that are located in unserviced areas and removing the Springfield Airport site (which
has been developed), '[t]he remaining vacant land inventory of 34 acres is in smaller,
desegregated sites.' (SCLS, pp. ii) Based on an absorption rate of 17 acres/year, the City of Springfield
had a two year supply of vacant readily buildable commercial land that has long since been exhausted.
Furthermore, '[d]uring the period of August 1995 to early 1999, commercial land in Springfield was
developed at a rate of 36 acres per year. This high rate of absorption reflects the rapid growth of
the State and Metro Area during this same period.' Growth at a rate consistent with the growth
experienced during the period of 1995-1999 would have exhausted the supply of vacant commercial land
within one year (by 2001). In either event, there is by now an acute shortage of vacant, buildable
commercial land in Springfield's UGB. '
As the SCLS notes, size and location further limit the supply of buildable land. Goal 9 requires not only
enough net buildable acres but also sites of varied 'sizes, types, locations and service levels.' In order
to foster economic growth and commercial development is it essential that the City maintain a diverse
supply of buildable commercial land in various sizes and locations. The CAC found in the SCLS that
there is a need for a supply of both larger and smaller sites to provide choice, diversity and economy in
the marketplace. Given the current shortage of larger sites, rezoning or annexation may be necessary for
this to occur. The proposal would improve the supply of vacant commercial land through rezoning
consistent with the CAC's recommendation. The property that is subject to this application is a 5.32 acre
site that would be a development ready commercial site; it would be one of two development ready
parcels of this size in Springfield and would be the only such parcel in a desirable location.
The discussion supra has relied on information provided in the SCLS. [The applicant is aware that a new
commercial/industrial land inventory is being prepared; however, that report is not available at this time.]
SCLS Table 2.3 (Exhibit 3) lists vacant commercial land in Springfield as of February 1999. There are
only seven sites of the approximate size of the subject parcel in that inventory. . The inventory has been
reduced by development that has taken place since publication of the SCLS.. Because the 'sites' are
4-17
listed by site n.umber and not tax lot numbers it is somewhat difficult to establish which sites have been
developed; however, there is no question that site 1042 [3.42 acres near Olympic and 18th Streets] has
been developed. Site 1004 [5 acres near in the Gateway area, at Hutton and Kruse] appears to be
vacant but largely diminished in size; this site has limited potentia'! due to its location. The site is tucked
away in an area characterized by hotel use.
.
The limited utility of site 1004 and the development of 1042 and the lack of urban services to the other
sttes effectively means that the number of fully served, development ready commercial sites is zero.
Approval of the Plan Diagram Amendment will help implement the requirement that an adequate supply
of suitable sites and service levels be maintained. Finally, the proposed Diagram Amendment will help
Springfield comply with the requirements of Goal 9 by centrally locating a commercial parcel of this size
and development potential. Table 2.3 (Exhibit 4) used in conjunction with TransPlan Appendix A (Exhibit
1) show that nearly all of the parcels of this size and designation are located on the outskirts of the UG B
and are not fully served.
This statewide planning goal requires the Metro Plan and the SDC be interpreted in a manner that will
ensure enough developable commercial land to facilitate Springfield's economic development.
Underestimating the amount of commerciallf3nd needed to support future growth will hinder Springfield's
ability to provide commercial services to future residents of the community. Approval of thi~ plan diagram
amendment will support future growth and comply with Goal 9.
B. The Supply of Industrial Land Exceeds an Adequate Supply
Statewide Planning Goal 9 requires jurisdictions to maintain an adequate (emphasis added) supply of
industrially and commercial zoned lands to meet projected demand. The MILlR found that there were
4,039 acres of land on 189 sites that were designated or zoned industrial within the Metro-UGB.
Approximately 3,604 acres on 180 sites were considered buildable; 709 buildable acres were contained in
Springfield's UGB. The most likely projected 20 year demand for industrial land through the planning
period is estimated at 650 gross acres (MILPR). The best estimate from 1993 provided that there was a
surplus of 2,432 and 2,954 acres of industrially zoned land in the Metro area.
.
The actual demand for industrial land is impossible to project. According to the MILPR, demand for
industrial land could be as great as 1172 acres. If that projection is accurate, the supply exceeds the 20
year demand by 2,432 acres. Given either demand projection, the supply of industrial land exceeds what
is need.ed to accommodate the economic growth in that sector ofthe economy. Given these statistics
and the requirement that the jurisdiction maintain an adequate supply of commercial land as well as
industrial land, there is no reason for the City to deny this Plan Diagram amendment based a perceived
need to retain what amounts to a surplus of industrially zoned land.
The surplus of industrially zoned land impedes Springfield's economic growth. According to the SCLS,
the MILS found that there were 4039 acres of land on 189 sites that were designated or zoned industrial
within the Metro-UGB. Of this total inventory, 3604 acres were considered buildable and 709 buildable
industrial acres were located in Springfield. The SCLS states that the 2,432 to 2,954 acre surplus
, provides a degree of market choice. . . (SCLS, pp. 23). This surplus provides more than a degree of
market choice; there is a glut of industrially zoned land. The surplus of industrially zoned land drives
down the market value of industrial land. The reduction in FMV of industrially designated sites
decreases the incentive for owners of industrial land to make these properties available for development.
The surplus impedes economic growth by increasing the 'market factor' which is the amount of land
zoned for a type of use that is not available for development because owners of the property do not want
to develop the parcel until a later date. At the same time, the shortage of commercial zoned lands in
Springfield makes it extremely difficult and prohibitively expensive for commercial enterprises to locate in
the Springfield area. '
Approval of this plan amendment request will retain and enhance the value and utility of the remainder of
the area for industrial users. MILlR notes that new industrial users seek sites that are: three to twenty
acres in size; have good site and highway access; wel/ serviced; free of constraints; and well served by
.
4-18
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.
.
urban ameniti?s and near urban services. The Plan Diagram Amendment will not substantially reduce
the amount oftand available for new industrial users not will it reduce the quality of the remainder of the
area. Based on an analysis of these factors, approval of the Plan Diagram Amendment will leave a
potential industrial development site that is desirable for new industry while also allowing for a mix of uses
that will further the economic development of Springfield. As the Metro plan notes, careful mixing (of the
type proposed here) can actually lead to an increase in value for industrial users.
,Exhibit 2 shows the configuration of the area as proposed by the applicant. As the exhibit clearly shows,
a 18 acre LMI site with good road and rail access will remain. The approximately 18 acre LMI site is the
size which is most desirable for new industrial users as noted in the MILlR. The subject parcel will remain
constraint free and well served by urban services. Approval of the Plan Diagram Amendment and
concurrent Legislative Zoning Map Amendment will not reduce the inventory of vacant industrial sites
between 10-1 9 acres. The Metropolitan Lands Site Evaluation lists 5 sites between 10-1 9 acres
designated for LMI use. The area in which the subject parcel is located was designated as site 7-17, a
52. 9 acre site with one owner zoned LMI/HI. The character of the area has since changed significantly.
The proposal would add a highly desirable site to the City's 10-1 9 acres LMI inventory and would improve
the inventory by locating commercial uses near industrial uses and by buffering residential uses from
future industrial development.
The foregoing discussion indicates that the proposal would promote healthy economic growth; the current
deficit of commercial land and surplus of industrial land impedes healthy economic growth and this
proposal will help remedy and address this situation. The proposal is consistent with this Statewide
Planning' Goal. "
Staff's Response:
Explanation language under State-wide Planning Goal 9 states: "Comprehensive plans and policies
shall contribute to a stable and healthy economy in all regions of the state. Such plans shall be
based on inventories of areas suitable for increased economic growth and activity after taking
into consideration the health of the current economic base; materials and energy availability and
cost; labor market factors; educational and technical training programs; availability of key public
facilities; necessary support facilities; current market forces; location relative to markets;
availability of renewable and non-renewable resources; availability of land; and pollution control
requirements."
The Eugene-Springfield Metropolitan Plan (Metro Plan) is Springfield's comprehensive plan. DLCD
acknowledged the Metro Plan in 1982. The Metro Plan has been amended several times since 1982.
The Metro Plan contains policies applicable to industrial and commercial development in Chapter III,
"Specific Elements". Applicable Metro Plan policies are addressed elsewhere in this report.
There are two inventories that are applicable to these applications: 1) The Springfield Commercial Lands
Study (February 2000) which indicated that there is a general shortage of commercial land for the '
planning period; and 2) The Metropolitan Industrial Lands Inventory Report (1992) which indicated a
surplus of industrial land for the planning period.
Chapter Four of the SCLS contains Findings, Policies and Implementation Strategies. Beginning on Page
35 under the topic Rezoning and Redesignation states: "Discussion: Rezoning and redesignations
were identified as methods to increase the supply of commercial land. However, rezoning
essentially reduces the other land use inventories. The CAC expressed a concern that the
Industrial Lands Study and the Residential Land Study were both completed on a Metro-Wide
level, and that these inventories would need to be updated for Springfield alone before any
rezoning or redesignations could occur. It is important for the City to develop a land use
monitoring system to track the sale and absorption of commercial land and to evaluate the
success of City policies and strategies in providing land supplies.
4-19
In addition, designating zoning sites to commercial may create traffic problems and negatively
effect residential neighborhoods. Following the evidence of a surplus of land in one land use
category, rezoning or redesignations could occur within the guidelines of existing Metro Plan
policies, based upon evaluation of existing inventories, an analysis of traffic and other
infrastructure limitations, and within the parameters of adopted City guiding documents.
.
Finding 3: Based on the findings of the 1992 Industrial Land Study (ILS), the future demand for
industrial land will be met adequately by the existing inventory of sites. The ILS found that a
surplus of industrial sites exists in the Metro Area, and that there would be no demand for Heavy
Industrial into the future. The ILS indicated a need for 650 gross acres of industrial land to the
year 2010 for the Metro Area. At the time the ILS was completed, there were 708 vacant acres of
industrial land within the Springfield UGB alone....
Policy 3-A: Redesignate and rezone portions of industrial land or residential land within identified
Employment Center, Neighborhood Center, or Commercial Center nodes to Mixed Use
Commercial to achieve the objectives of TransPlan, Transportation Planning Rule 12, and to
incorporate higher intensity development in conjunction with residential and employment
opportunities.
Implementation Strategy 3-A (1): Evaluate inventories based on need for the planning period. .
Initiate rezoning or redesignations of surplus land uses where more appropriate for commercial,
consistent with the Metro Plan."
SCLS Implementation Strategy 1-C (1) states: "Develop a monitoring system to track absorption of
commercial land by acreage as commercial land is developed and ensure that reliable data on the
supply of serviced land is available on an ongoing basis." This strategy is not in place at this time.
The Commercial Industrial Buildable Lands (CIBL) Study is currently underway. However, it is unknown
at this time how this study may affect these applications.
.
Therefore, staff must rely upon the inventories discussed above.
NOTE: OAR Division 9, and specifically 660-009-0010(4) states: "Notwithstanding paragraph (2)
above, a jurisdiction which changes its plan designations of lands in excess of two acres to or
from commercial or industrial use, pursuant to OAR 660, division 18 (a post acknowledgment plan
amendment), must address all applicable planning requirements; and:"
The subject property contains 5.32 acres, so this OAR applies. One measure of "adequate opportunities"
is an inventory of commercial land suitable and available for development, expansion and redevelopment
of projected employment growth for the planning area. The current Springfield Commercial Lands Study
was adopted in February 2000. The study indicated that there is a general shortage of commercial land
for future development.
In order to implement the Metro Plan Nodal Development Area land use designation, the applicant also
proposes to amend the Mid-Springfield Refinement Plan diagram and the Springfield Zoning Map to
Community Commercial INodal Development Overlay District.
The Metro Plan diagram amendment is not a substantial amendment because the change is between two
current land use designations and the rezoning is to a currently existing zoning district, Community
Commercial/Nodal Overlay District.
"(a) Demonstrate that the proposed amendment is consistent with the parts of its acknowledged
comprehensive plan which address the requirements of this division; or"
Language demonstrating consistency with Metro Plan policies is addressed in the response to the Mid-
Springfield Refinement Plan criteria of approval in criterion 1, ref. SDC Section 8.030, below.
.
4-20
.
.
.
U(b) Amend its comprehensive plan to explain the proposed amendment, pursuant to OAR 660-
009-0015 thro'ugh 660-009-0025; or"
The Metro Plan was amended in 2001 when TransPlan and the Nodal Development Area land use
designation were adopted.
U(c) Adopt a combination of the above, consistent with the requirements of this division."
The responses to (b) and (c) above demonstrate that (c) is not necessary.'
Staff Findinq:
These applications comply with Goal 9 because there is a demonstrated shortage of developable
commercial land and a surplus of industrial land and are consistent with applicable Metro Plan policies,
SCLS Policy 3-A and SCLS Implementation Strategy 3-A (1).
GOAL 10: HOUSING
"To provide for the housing needs of citizens of the state."
Applicant's Submittal:
"This proposal will not impact the housing inventory; however, to the extent that this planning goal is
relevant to the proposal, the goal supports this proposal. The goal begins with the need to provide shelter
for citizens of the State of Oregon. However, beyond this very basic need, the housing goal extends to
the realm of creating livable communities. This proposal will help create a viable community by providing
convenient access to commercial services for residents of the medium density residential housing in the
area and by screening these residents from the visually unappealing heavy industrial uses at the Dynea
,facility. The applicant's proposal will result in an area characterized bya mix ot uses and will realize the
area's nodal type development potential. "
Staff's Response:
The Metro Plan diagram amendment application proposes to change the subject property from Heavy
Industrial to Community Commercial/Nodal Development Area and the Mid-Springfield Refinement Plan
and Springfield Zoning Map amendment from Light-Medium Industrial to Community Commercial/Nodal
Development Area. The Eugene-Springfield Metropolitan Residential Lands and Housing Study, Policy
Recommendations Report (1999) found "there is sufficient buildable residentiallandwithin the
existing urban growth boundary to meet the future need of the projected population." The study
pointed out, however, a shortage of land zoned for medium and high density residential development in
Springfield. While the SDC does allow the option of residential development with a minimum density of 12
dwelling units per acre, the applicant has stated that the intent is to develop the subject property with
commercial uses. The applicant's statement about the Dynea property above may also preclude
residential development on the subject property. The applicant has also stated "that the immediate result
of the approval of these applications "will be the siting and location of a Department of Motor
Vehicles facility in the structure that currently houses the day care facility auxiliary to the retail
Goodwill store located on the adjacent property." This facility will serve Springfield residents City-
wide. If this proposed use needs one acre of land, then there would be just over 4 acres left to develop
ua viable community by providing convenient access to commercial services for residents ofthe
medium density residential housing in the area...." The applicant's response to State-wide Planning
Goal 12, below, supports this concept. Utilizing the /Nodal Development Overlay District with the
proposed Community Commercial zoning limits certain commercial uses that are large trip generators.
4-21
Staff Findinq;
.
Goal 1 0 does not apply to these applications based upon the applicant's submittal. However, this Goal
will apply and can be met if a residential development option is chosen. In that case, there must be
compliance with the multiple-family minimum density of 12 dwelling units per acre and Goal 12,
Transportation.
Condition of Approval #1:
Any future residential development on the Goodwill property shall be required to maintain a minimum
density of 12 dwelling units per acre.
GOAL 11: PUBLIC F AGILITIES AND SERVICES OAR 660-015-0000(11)
"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."
Applicant's Submittal:
"This proposal will encourage development Where urban facilities and services are available capitalizing
on public expenditures made for this purpose."
Staff's Response:
, Goal 11 calls for efficient planning of public services such as sewers, water, law enforcement, and fire
,protection.
The Eugene-Springfield Metropolitan Public Services and Facilities Plan (PFSP) is a refinement plan of
the Metro Plan that guides the provision of public infrastructure, including water, sewer, storm water
management, and electricity. The PFSP specifically evaluated the impact of nodal development and
increased development densities c:>n the potential node sites being considered in the Springfield area.
The PFSP is supportive of mixed-use and nodal development. Findings in the PFSP conclude that most
potential nodal development sites can be provided with key urban service using existing infrastructure
capacity (Finding #10, PFSP, page 11). Based on this conclusion, Policy #G7 in the PFSP states,
"Service providers shall coordinate the provision of facilities and services to areas targeted by the
cities for higher densities,infill, mixed uses, and nodal development" (PFSP, pg. 12). The
proposed Metro Plan and Mid-Springfield Refinement Plan designation amendments to Community
Commercial/Nodal Development Area and the proposed Springfield Zoning Map amendment to
Community Commercial/Nodal Development Overlay District do not preclude the coordination of services
in nodal areas.
.
More than half of "Potential" Nodal Development Area9C contains commercial and multi-family
development. All urban services needed for existing uses and new development are available to the
subject property and other vacant properties in this area, including fire and police protection, parks,
sanitary and storm sewer, publiC transportation, schools, street systems and utilities. The property is
served by Springfield Utility Board for water and electricity; by Willamalane Park and Recreation District;
by School District 19; and by the City of Springfield for maintenance of sewers, streets, a!leys, library and
development and permit services.
Staff Findinq:
These applications comply with Goal 11 because there are urban level public services available to the
subject property.
.
4-22
. GOAL 12: TRANSPORTATION
"To provide and encourage a safe, convenient and economic transportation system."
Applicant's Submittal:
"The Goal of Statewide Planning Goal 12 is to provide and encourage a safe and convenient and
economic transportation system. The applicant respectfully submits that the proposal woUld result in a
nodal development area thus accruing many of the benefits of this development pattern. Approval of this
Plan Diagram Amendment and concurrent Legislative Zone Map Amendment would eventually result in
the location of commercial services and or office uses with related employment opportunities within
convenient walking and bicycling distance of existing medium density residential development to the east.
Commercial services and office uses on the subject parcel would also serve employees of future
industrial development in the area. The applicant has provided a Traffic Study that demonstrates
compliance with this Goal. "
.
The applicant hired Michael Weishar, P.E. of Access Engineering LLC to prepare the following
Transportation Analysis that was addressed'to the applicant:
"... You are proposing a rezone of tax lot 5200 on Tax Map 17-02-31 located on 3dh Street north of East
Main Street in Springfield, from light-medium industrial (LMI to community commercial (CC). This
property is immediately north of the Goodwill parcel and contains an existing Day Care center building on
the south end of the property that shares parking with Goodwill. Since many land uses allowed in the CC
zone generate more trips per area than most land uses allowed in a LMI zone, you have decided to have
a trip count conditioned to the parcel based upon a reasonable worst-case development allowed in the
existing LMI zone. By electing a trip cap condition of development, you will ensure that there will be no
finding of significant affect according to the Transportation Planning Rule (TPR) definition as a result of
the zone change, since the trip generation for facilities in the CC zone will limited to what could be
expected to be generated by the LMI zone. This letter will document the determination of the trip cap.
The parcel is 5.32 acres in size with an existing 6,000 square foot building occupying the southern 0.52
acres of the parcel. Trips generated by the entire parcel under LMI zoning will include trips generated by
the day care and reasonable worst-case development on the remaining 4.8 acres of the parcel. The
undeveloped portion of the parcel has approximately 1,000 feet offrontage on 3dh Street and is only 200
feet in depth. Due to the shape of the parcel, two land uses would more reasonable fit on the parcel
rather than one "big box" development. In discussions with Springfield Planning staff, it has been agreed
that a reasonable worst-case development for this parcel would be a health/fitness center and a floor
covering/hardware/paint store. The health/fitness center is allowed in a LMI zone under Springfield Code
section 20.020(10)(a) which allows recreational uses listed under section 18.020(6) of the Code. The
floor covering store is allowed in a LMI zone under section 20.020(9)(d) which allows warehouse
commercial uses allowed under 18..020(13) except (m).
The first step in determining the trips generated by these land uses is to estimate the size of each
building. The maximum developable area was estimated by subtracting the required setback and off
street loading areas from the total square footage of undeveloped land.
4.8 acres = 209,100 SF
Setbacks: (10 feet on 3-sides of each building and 5 feet around the parking areas) estimated to be
14,600SF
Loading: 500 SF per building or 1,000 SF total.
Developable area = 193,500 square feet.
.
Assuming each land use takes JI2 of the parcel, that leaves an area of 96, 750 SF for each land use.
The parking space requirements for a health/fitness club are I space per 200 SF.
The parking space requirements for the floor covering store are 1 space per 300 SF.
4-23
Assuming 40Q SF per parking space allows for landscaping and circulation aisles.
The formula for computing the building size is:
.
Bldg. SF = Total SF/(1+[parking space per SFJ x [SF per space])
For the Health/Fitness Center Bldg. SF = 96,750/(1 +[1/200J x 400) = 32,250 SF
For the Floor/Paint Store Bldg. SF == 96,750/(1+[1/300Jx 400) = 41,465 SF
Therefore, the reasonable worst-case development scenario for the parcel in the existing LMI zone
contains 6,000 SF Day Care, a 32,250 SF Fitness Center and a 41,465 SF Floor Covering/Paint Store.
The trips generated by these uses are then determined from the th Edition of the ITE Trio Generation
manual. The following table shows the trips generated by each land use.
u.nd VIOl! lITE CQde) Size Unit Avorago WQ:okd;lY PM Pc.ak Hour
ISF.1 fUto Trl~ Rate Trips
Day Care Cen!er(565) tLOO 1K SF GFA 79.26 476 13.18 79
HelllUvFltn6115 Center {492) 32.25 1K SF OFA 32,93 1062 4,05 131
I I ardwaM(I'ainl ~lort! ilH6) -41.47 11-:'&1= GFA 512!> 2127 ~.84 201
Totilll for Parcel 3GG4 410
Based on the above analysis, the reasonable worst-case development of the parcel could generate 3,664
trips per day or 410 trips in the PM peak hour. These are the recommended trip caps for the parcel
rezoned from LMI to CC. "
Staff's Response:
Goal 12 encourages development that avoids principal reliance on one mode of transportation. Mixed
use development is intended to bring people closer to where they shop and work and create, and to
support pedestrian-friendly neighborhoods where walking, bicycling and transit use are attractive
transportation choices. The subject property is located in proposed TransPlan Node 9C.
.
The Transportation Planning Rule (TPR) (OAR 660-12-0000 - 660-12-0070), adopted in 1991, and last
amended in March 2005 implements Goal 12. The intent of the Transportation Rule is to "...promote the
development of safe, convenient and economic transportation systems that are designed to
reduce reliance on the automobile..." The Metro Plan is Springfield's comprehensive plan
acknowledged LCDC in 1982. TransPlan (the Eugene-Springfield Metro Area's adopted TSP
(Transportation System Plan) is the transportation element of the Metro Plan. DLCD acknowledged the
current TransPlan in 2001. The Metro Plan was also amended at that tiine to include the Nodal
Development Area land use designation. Both documents implement Goal 12 and the Transportation
Rule in the Eugene-Springfield metropolitan area. These applications are constant with the intent of the
Transportation Rule.
OAR 660-012-0060(1) (a-c) requires a specific analysis whenever an amendment to a functional plan,
acknowledged comprehensive plan or land use regulation is proposed. This analysis must determine
whether or not the proposal "would significantly affect a transportation facility" and if so, "assure
that allowed land uses are consistent with the identified function, capacity, and performance
standards (e.g. level of service, volume to capacity ratio, etc.) of the facility. An amendment
significantly affects a transportation facility if it would:
(a) Change the functional classification of an existing or planned transportation facility (exclusive
of correction of map errors in an adopted plan);"
.
4-24
.
.
.
Subsection (a} does not apply because these applications only amend the Metro Plan and Mid-Springfield'
diagram landu'se diagrams, add text to the Mid-Springfield Refinement Plan to implement the Metro
Plan's and TransPlan's Nodal Development Areas and amends the Springfield Zoning Map by only
changes related classes of uses that may be allowed on the subject property. These applications do not
change standards implementing a functional classification system for transportation facilities, which would
be the case with an amendment to a state or local street plan.
"(b) Change standards implementing a functional classification system; or"
Subsection (b) does not apply because these applications only amend the Metro Plan and Mid-Springfield
diagram land use diagrams, add text to the Mid-Springfield Refinement Plan to implement the Metro
Plan's and TransPlan's Nodal Development Areas and amends the Springfield Zoning Map by only
changes related classes of uses that may be allowed on the subject property. These applications do not
change standards implementing a functional classification system for transportation facilities, which would
be the case if the City were, for example, changing its threshold for an acceptable level of service for
collectors from D to E.
"(c) As measured at the end of the planning period identified in the adopted transportation system
plan:
(A) Allow land uses or levels of development that would result in types or levels of travel or
access that are inconsistent with the functional classification of an existing or planned
transportation facility;
(B) Reduce the performance of an existing or planned transportation facility below the minimum
acceptable performance standard identified in the TSP or comprehensive plan; or .
(C) Worsen the performance of an existing or planned transportation facility that is otherwise
projected to perform below the minimum acceptable performance standard identified in the TSP
or comprehensive plan."
The classification of the following streets serving Proposed Nodal Development Area 9C is shown on the
TransPlan Federally Designated Roadway Functional Classification Map (Appendix A) as follows: .
North-South Streets:
30th Street - Proposed Collector
East-West Streets:
Main Street - Principal Arterial
Commercial Avenue - Minor Arterial
30th Street has been constructed and is fully improved with curb, gutter and sidewalk and connects to
Main Street and Commercial Avenue. Main Street is fully improved with curb, gutter and sidewalk, is part
of the State Highway system and is currently the primary entry/exit to the subject property. Commercial
Avenue is fully improved with curb, gutter and sidewalk at the connection of 30th Street. The subject
property is not near any Eugene-Springfield Highway interchange.
Subsection (c) is applicable with respect to state and local transportation facilities. TransPlan's TSI
Roadway Policy #2: Motor Vehicle Level of Service, adopts LOS standards for the local facilities and
recognizes Oregon Highway Standards for state facilities as follows:
"1. Use motor vehicle level of service standards to maintain acceptable and reliable
performance on the roadway system. These standards shall be used f~r:
a.
b.
Identifying capacity deficiencies on the roadway system.
Evaluating the impacts on roadways of amendments to transportation plans,
acknowledged comprehensive plans and local land use regulations, pursuant to TPR
(OAR 660-12-0060).
4-25
Evaluating development applicaticns fcr ccnsistency with the land-use regulations cf
the applicable Iccal government jurisdicticn.
2. Acceptable and reliable service is defined by the fcllowing levels cf service under peak hcur
traffic conditicns: Level of service E within Eugene's Central Area Transportation Area, and
Level cf Service 0 elsewhere.
c.
.
3. Performance standards fcr the Oregcn Highway plan shall be appliedcn state facilities in
the Eugene-Springfield metrcpolitan area.
In scme cases, the level of service cn a facility may be substandard. The local gcvernment
jurisdiction may find that transportation system imprcvements to. bring perfcrmance up to.
standard within the planning horizon may not be feasible, and safety will nct be ccmpromised,
and brcader community gcals wculd be better served by allcwing a substandard cf service. The
limitation cn the feasibility cf a transpcrtaticn system imprcvement may arise from sever
ccnstraints including but not limited to environmental ccnditions, lack cf public agency financial
rescurces, cr land use ccnstrain factors. It is nct the intent cf TransPlan's TSI Rcadway Pclicy
_ #2: Motor Vehicle Level cf Service to. require deferral cf development I such cases. The intent is to
defer motor vehicle capacity increasing transpcrtaticn imprcvements until existing ccnstraints
can be overccme cr develcp an alternative mix of strategies (such as land use measures, TOM,
shcrt-term safety imprcvements) to address the prcblem." TransPlcln Ch. 2, Page 25
The submitted analysis estimates thenumber of Average Weekday and PM Peak Hour vehicle trips that
would be generated by a "reasonable worst case" development scenario under existing zoning. These
estimates are:
. Average Weekday = 3,664 Trips
. PM Peak Hour = 410 Trips
.
The applicant proposes that a condition of approval be imposed that would limit vehicle-trip generation
from re-zoned acres to the above values. This is an acceptable approach to demonstrate compliance
with OAR 660-012-0060, the "Transportation Planning Rule (TPR). It is based on the assumption that
existing land-use and transportation system plans are in harmony, and thus, development under changed
zoning that would generate the same number (or fewer) trips as development under existing zoning would
not "significantly affect an existing or planned transportation facility" as that term is defined in ,
OAR 660-012-0060 (1). Placing a limit on trip generation from specified parcels is generally referred to as
a "trip cap," and can be implemented via a "Trip Monitoring Plan".
Staff Findin~:
Thes~. applications ~omply wi~h Goal 12 because. the applicant's anal~sis dem~nstrates .that, as .
conditioned, there Will not an Increase future traffiC volumes at the 30 and Main Street intersection above
volumes expected to occur with development under existing zoning.
Conditicn of Apprcval # 2
Submittal of a Trip Monitoring Plan (See Attachment 4). The signed plan shall be recorded at Lane
County at the property owner's expense.
GOAL 13: ENERGY CONSERVATION
"To. ccnserve energy. " land and uses develcped cn the land shal/ be managed and ccntrcl/ed so
as to. maximize the ccnservaticn cf al/ fcrms cf energy, based upcn sound eccnomic principles." ,
.
4-26
. Applicant's Submittal:
"The area in which the subject property is located is identified in the TransPlan as having potential for
nodal development.... Development of the subject property with commercial uses has the potential to
reduce automobile trips both in duration and frequency by providing commercial services in close
proximity to the residential areas to the east of the subject property and near future industrial
development. By reducing the frequency, number and duration of automobile trips the proposal will
conserve energy. Nodal development of the type proposed here will also conserve energy by promoting
infill development and intensification of land use within the UGB. Locating commercial uses in nodal
areas rather than in a linear fashion along Main Street will help conserve energy.
The development of the subject property will be subject to building codes intended to maximize energy
efficiency. "
Staff's Response:
The Energy Goal is a general planning goal and provides little guidance for site specific comprehensive
plan diagram changes. The Metro Plan diagram amendment application proposes to change the subject
property from Heavy Industrial to Community Commercial/Nodal Development Area and the Mid-
Springfield Refinement Plan and Springfield Zoning Map amendment from Light-Medium Industrial to
Community Commercial/Nodal Development Area will generally promote higher density development that
is transit supportive. This form of development allows persons to live closer to where they live and work,
thus encouraging more energy efficient modes of transportation such as transit, bicycling, or walking.
.
However, staff has the same concern that was raised under the Goal 10 discussion. The applicant stated
"that the immediate result of the approval of these applications "will be the siting and location of a
Department of Motor Vehicles facility in the structure that currently houses the day care facility auxiliary to
the retail Goodwill store'located on the adjacent property." This facility will serve Springfield residents
City-wide. However, this use will require only one acre. There would be just over 4 acres left to develop
"a viable community by providing convenient access to commercial services for residents of the medium
density residential housing in the area...." This issue is addressed by the trip cap that is a condition of
approval under the Goal 12 discussion and the Nodal Overlay District zoning that limits high volume
commercial uses.
Staff FindinQ:
These applications comply with Goal 13 because staffs concerns have been addressed by the
applicant's response to Goal 12 and the commercial use limitations under the /Nodal Development
Overlay District as specified in SDC Article 41.
Goal 14: URBANIZATION
"To provide for an orderly and efficient transition from rural to urban land use."
Applicant's Submittal:
"The subject property is urban land and as such this goal is not applicable to this request. To the extent
that the intent of this goal reflects on this proposal, the applicant notes the proposal is infill type
development and increases and intensifies land use within the Urban Growth Boundary. This alleviates
pressure to urbanize rural lands in order to meet Springfield's needs for additional commercial lands. The
subject property is also fully served by urban services and will capitalize on public expenditures made for
this purpose. "
.
Staff's Response:
4-27
Goal 14 requires cities to estimate future growth and needs for land and then plan and zone enough land
to meet those needs. There are three studies that address this issue:
.
1. The Eugene-Springfield Metropolitan Residential Lands and Housing Study, Policy
Recommendations Report (1999);
2. The Springfield Commercial Lands Study (February 2000) indicated that there is a general shortage
of commercial land for future development; and
3. The Metropolitan Industrial Lands Inventory Report (1992).
Goa/14 also encourages compact forms of development within Urban Growth Boundaries.
The Metro Plan diagram amendment application proposes to change the subject property from Heavy
Industrial to Community Commercial/Nodal Development Area and the Mid-Springfield Refinement Plan
and Springfield Zoning Map amendment from Light-Medium Industrial to Community Commercial/Nodal
Development Overlay District will occur within the city limits and within the City's Urban Growth Boundary.
The proposed amendments address the studies listed above in responses to Goals 9 and 10.
Staff Findinq:
Goal 14 does not apply because the City has adopted residential, commercial and industrial land
inventories and the subject property is located within Springfield's Urban Growth Boundary.
GOAL 15:WILLAMETTE RIVER GREENWAY OAR 660-015-0005
"To protect, conserve, enhance and maintain the natural, scenic, historical, agricultural; economic
and recreational qualities of lands along the Wi/lamette River as the Willamette River Greenway."
.
Applicant's Submittal:
"The subject property is not located on or near the Wil/amette River. This goal is not applicable to this
request. "
Staff's Response:
Staff concurs with the applicant's response.
Staff's Findinq:
Goal 15 is not applicable to these applications because the subject property is not located on or near the
Willamette River. '
Goals 16 through 19 _ Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean
Resources.
Applicant's Submittal:
"These goals are not applicable to this request. "
Staff's Response:
There are no coastal, ocean, estuarine. or beach and dune resources within the City's jurisdiction.
.
4-28
. Staff's FindinJl:
Goals 16 - 19 do not apply in Springfield because they pertain to. coastal areas.
Conclusion for criterion (3){a):
Applicant's Submittal:
"SDC 7.070 (3)(a) provides a Proposed Plan Amendment must be consistent with the relevant Statewide
Planning Goals. The proposed Plan Amendment amending the Metro Plan Diagram designation of the
subject property from Heavy Industrial to Community Commercial is consistent with all applicable
Statewide Planning Goals; the proposal is strongly supported by Statewide Planning Goal 9 ... by helping
alleviate the shortage of development ready sites of this size and quality and by helping provide an
adequate amount of commercial land to meet projected demand. This will help ensure health economic
growth.... and. Statewide Planning Goal 12. ... The proposal will also result in a development pattern that
will facilitate convenient, efficient and economic use of the transportation system. By carefully mixing
commercial, residential and industrial uses the result will be a nodal development pattern that is
transportation and energy efficient. All relev.ant statewide planning goals support approval of this Plan
Diagram Amendment and concurrent Legislative Zoning Map amendment. The applicant has not
identified any Statewide Planning Goals that conflict with the proposal...."
Staff's Response and FindinQ:
.
These applications comply with the State-wide Planning Goals primarily because there is a demonstrated
shortage of developable commercial land and an excess of industrial land based upon the land
inventories cited above and the required trip cap will not increase traffic on the state highway system.
SDC Section 7.070(3) "(b) Adoption of the amendment must not make the Metro Plan internally
inconsistent. "
Applicant's Submittal:
"The requirement of SDC 7.030(3)(b) that adoption of the Metro Plan Diagram Amendment not make the
Metro plan internally consistent does not mean that every goal, objective, finding and policy of the Metro
Plan must support the Metro Plan Diagram Amendment. Because of recognized conflicts in the Metro
Plan, the proper inquiry is whether on balance the most relevant of the Plan support the Metro Plan
Diagram Amendment. The applicant respectfully submits that the findings and policies of the SCLS, the
Metropolitan Lands Inventory Report (Hereinafter MILlR), the Metropolitan Industrial Lands Policy Report
(hereinafter (MILPR), and the TransPlan element of the Metro Plan are beneficial to decision makers in
weighing the relevant portions of the Metro plan as they perform the required balancing. The applicant
asserts that upon taking these reports into consideration when balancing the relevant portions of the
Metro Plan, the Metro Plan supports the approval of the Plan Diagram Amendment and the proposal does
not make the Metro plan internally inconsistent."
Staff's Response:
The text of the Metro Plan, specifically the policies, supports this action in much the same way that this
action was found to be consistent with the applicable State-wide Planning Goals. The Metro Plan policies
cannot exist without acknowledgement and acknowledgment cannot exist without findings of Goal
consistency. The applicant's case for this criterion is explained in detail in the response to SDC Section
8.030(1), below.
. Staff's Finding: '
4-29
These applications will not make the Metro Plan internally inconsistent because if a proposed diagram
amendment is'found to be consistent with the State-wide Planning Goals it should also be found to be
consistent with the Metro Plan's policies.
.
IX. MID SPRINGFIELD REFINEMENT PLAN DIAGRAM/TEXT AMENDMENT CRITERIA AND
FINDINGS
Applicant's Submittal:
"Article 8 of the Springfield Development Code supplies the approval criteria for the Adoption or
Amendment of refinement plan text and refinement plan diagrams. The application is in accordance with
the requirements of this section of this ordinance.... " '
Staff's Response:
The applicant submitted three submittal packages that include similar responses to similar criteria of
approval. Where the applicant's submittal r.esponds to a similar criterion is used in another application,
staff will reference the location of that response (See SDC Section 8.030(3) below). Where the
applicant's submittal responds to a criterion that is not used in another application, staff will address that
response in this area (See SDC Section 8.030(1) and (2), below).
SDC Section 8.030 states: "In reaching a decision on these actions, the Planning Commission and
the City Council shall adopt findings which demonstrate conformance to: (1) The Metro Plan; (2)
Applicable State Statutes; and (3) Applicable State-wide Planning Goals and Administrative
Rules. "
SDC Section 8.030(1) "The Metro Plan;"
.
Applicant's Submittal:
'This section of the application focuses on the requirement of SDC 8.030 that the proposed amendments
to the applicable Refinement Plan must demonstrate consistency with the Metro Plan. The proposed
Refinement Plan Amendment providing a Nodal Development District Overlay for the area identified as
TransPlan Node 9C is consistent with the definition of nodal development provided in the Metro Plan,
'Nodal Development Area (Node): Areas identified as nodal development areas in TransPlan are
considered to have potential for this type of land use pattern. Nodal development is a mixed use,
pedestrian friendly land use pattern that seeks to increase concentrations of population and
employment in well defined areas with good transit service, a mix of diverse and compatible land
uses, and public and private improvements designed to be pedestrian and transit oriented.'
Approval of amendments will allow the area to realize the nodal development potential identified in
TransPlan consistent with the definition of Noda/ development provided in the Metro Plan. Furthermore,
the proposal is consistent with the remainder of the Metro Plan.... "
"A. Plan Principles
The Plan principles are themes that are fundamental to the entire Metro Plan. There are seven themes that
are fundamental to the entire plan. These themes permeate the individual plan elements and support
approval of the Plan Diagram Amendment. For example, Theme Three provides:
'3. The plan and most of its elements are oriented to and require that urban development occur in a
compact configuration within a prescribedurban service area.' '
.
4-30
. The plan diagram amendment will result in the near term development of the subject parcel with
governmental and commercial and/ or office uses within the UGB. The subject parcel is fully served by
urban services and will result in compact growth and in fill development. The proposal is consistent with this
broad theme. The applicant's proposal is also consistent with the fourth theme which provides:
'4. Comprehensive Plans identify and establish the Plan zoning consistency concept and recognize
the importance of timing concerning implementation techniques. Implementation techniques,
including zoning, shall be generally consistent with the precepts established in the Metropolitan
Plan, which is the broad policy document for the Metropolitan area. The consistency test shall be
continuously applied to implementation measures and public actions taken to remedy
inconsistencies. . . . '
The applicant's proposed Plan Diagram Amendment is generally consistent with the precepts set forth in the
Metro Plan. The applicant has applied the consistency testand has found the proposal consistent with the
Metro Plan, particularly the plan goals Growth Management Element and the Economic, Transportation and
Land Use Element of the Plan. The proposed Diagram Amendment is also consistent with the fifth theme of
the Metro Plan that provides:
'5. The zoning process shall be monitored and adjusted to meet current urban land use demands
through the planning period for all land use categories.'
.
Maintaining an adequate supply of land in all land use categories to meet demand through the planning
period is fundamental to the Metro Plan and the Plan must be interpreted in a manner to further this
principle. The rezoning process is one way in which the land base is.adjusted to meet demand. The
applicant's proposal would result in the rezoning of 5.32 acres from LMI to Community Commercial. The
best information, contained in the MILlR indicates that there was a surplus of between 2,432 and 2,954
acres of industrial land in the Metro area; however, there is an acute shortage of commercial land. The
proposal will help remedy this imbalance and help Springfield maintain an adequate supply of cOmmercial
land.
1. Metro Plan Growth Management Element/Principle
The Growth Management Element/Principle is set forth in the Fundamental Principles Chapter (II) of the
Plan. The Metro Plan provides that geographical growth management principles are 'intended to tie the
specific elements in Chapter III together into a comprehensive public policy document.' The
concepts, findings, objectives and policies of the Growth Management Element/Principle permeate the
individual plan elements; the public policy direction for the entire Metro Plan is set forth sl!ccinctly on page
II-B-1 of the Metro Plan. The growth principle and the Metro Plan generally intends to carry out the Goal of
the growth management element which provides: .'
'To effectively control potential for urban sprawl and scattered urbanization, compact growth and
urban service area concepts are, and will remain, the primary growth management techniques for
directing geographic patterns of urbanization in the community. In general, this means the filling in
of vacant and underutilized lands, as well as redevelopment inside the urban growth boundary.'
.
The proposal presented for review and decision here is in line with the guiding principle of the Metro Plan.
As a planning document, the primary purpose of the Metro Plan is to promote compact growth. The Plan
Diagram Amendment and Legislative Zoning Map Amendment will promote compact growth. There is a
greater demand for commercial land relative to supply than for industrially zoned land. The SCLS indicated
that in the best case scenario the vacant land inventory represented a five year supply (from 2000); it is now
2006 and no matter what projection is used, the supply has been practically exhausted by this point. No
matter the exac,t deficit, it is clear that there is an acute shortage of commercially zonedland. Because of
this shortage, it is more likely that the subject parcel will be developed in the near term is designated
Community Commercial with a Nodal Development Overlay District. The surplus of industrially zoned land
leads to less intense use of parcels within the UGB; the proposal encourages compact growth and infill
development. ' '
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The Growth Management Element of the Metro Plan is organized like the individual plan elements. The
difference between the Growth Management Element/Principle and the individual elements is that the
Growth Management Element is contained in the Plan principles Chapter and is fundamental to the entire.
Plan and the Element's directive to encourage compact growth run's through the individual plan elements;
thus, the Findings, Goals, Policies and Objectives of this Principle/Element guide and influence
interpretation of the individual plan elements which in turn are intended to amongst other things, implement
the Growth Management Principles/Element. The Goals, Objectives and Policies of the Growth
Management Element are based in Findings that in themselves support approval of this Plan Diagram
Amendment request.
.
(i) Growth Management Findings
'1. Many Metropolitan areas within the United States that have not implemented geographic growth
management techniques suffer from scattered or leapfrog urban growth that leaves vacant and
underutilized land in its path and encourages isolated residential development far from urban
centers. '
By encouraging compact groWth, the Metro Plan and Statewide Planning Goals are intended to minimize
the inefficiencies resulting from this type of development pattern. As discussed supra, the Plan Diagram'
Amendment is likely to result in the near term development of the subject parcel with commercial and/ or
office uses. This compact growth pattern wi/! achieve many of the benefits outlined in Finding 2 of this
element which provides:
'2. Beneficial results of compact urban growth include:
(a) Use of most vacant leftover parcels where utilities assessed to abutting landowners are already
in place. '
.
The proposal would achieve this benefit.
'(b) Protection of productive forest lands, agricultural lands, and open space from premature
development. '
Infi/! development relieves pressure to develop resource lands. Because of the shortage of commercial land
and the surplus of industrial land, infi/! development of the subject property is more likely to occur in the near
term if the property is designated Community Commercial with a Nodal Development Overlay District.
'(c) More efficient use of limited fuel energy resources and greater use of bicycle and pedestrian
facilities due to less miles of streets and less auto dependence than would otherwise be
required.'
The proposal wi/! locate commercial services in convenient walking and bicycling distance of nearby
medium density housing and future industrial development and will result in less auto dependence.
'(d) Decreased acreage of leapfrogged vacant land, thus resulting in more efficient and less costly
provision of utilities, roads, and public services such as fire protection.'
Because of the shortage of commercial land and the surplus of industrial land, infill development of the
subject property is more likely to occur in the near term if the property is designated Community Commercial
with a Nodal Development District Overlay. This development wi/! capitalize on public expenditures made
for the provision of these services.
(ii) Growth Management Goals
Two of the three growth management goals are applicable to the Plan Diagram Amendment request. These .
goals are at the core of the Oregon system of land use planning system; urban, urbanizable and rural land
should be efficiently used. The first of the applicable goals provides:
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.
'1. Use urban, urbanizable, and rural lands efficiently.'
The Plan Diagram Amendment and concurrent Legislative Zoning Map Amendment will result in the near
term development of a vacant parcel surrounded by urban development (leapfrogged). The compact growth
pattern facilitated by the proposal will use urban lands efficiently and will reduce development pressure on
rural lands. The proposed amendment will also further Goal Three of this Element/Principle which provides:
'3. Protect rural lands best suited for nonurban uses from incompatible urban encroachment.'
The amendment will likely result in the near term development of the subject parcel with commercial uses; in
its current designation the subject parcel is vacant and underutilized. The applicant's proposal will remedy
this inefficiency and provide a readily developable commercial parcel within the UGB. The resulting infill
development pattern will alleviate pressure to convert rural lands to urban uses and will limit urban
encroachment on rural land.
(iii) Growth Management Objectives
The Metro Plan provides that an objective "is.an attainable target that the community attempts to meet in
striving to reach a goal." The proposal will help the City achieve Growth Management Objectives and will
further the communities attempt to meet the growth management goals. For example, Objective 1 of the
Growth Management Element/Principle states the jurisdiction should:
'1. Continue to minimize urban scatterization and sprawl by encouraging compact growth and
sequential development.'
.
The proposal encourages compact growth and will minimize sprawl by changing the designation of the
subject parcel to a designation that is in demand. At the same time, vacant land remains available for light
medium industrial use. The proposed Plan Diagram Amendment and Legislative Zoning Map Amendment
will provide an opportunity for a commercial/ office uses, industrial development and residehtial uses to
locate in close proximity to one another. The resulting area will be pedestrian friendly because it will be
characterized by a mix of uses that are in convenient distance from one another.
. The property is more likely to be developed in the near term with commercial/ office uses rather than with
industrial use. The demand for commercial land in the Springfield area exceeds the supply. Conversely,
the demand for industrially zoned land is exceeded by the supply. 'Retention of this site in fts current zoning
designation encourages leapfrogged sites and vacant land within the UGB. The proposed Plan Diagram
Amendment will result in an area characterized by compact growth and a mixture of uses and will help
Springfield achieve this growth management objective.
The Plan Diagram Amendment will also help Springfield carry out Objective Two of the Growth
Management Element/Principle which provides the jurisdiction should:
'2. Ensure that land supply is kept in proper relationship to land use needs. '
The industrial land base exceeds anticipated demand for the planning period. The MILlR indicated that
there was a surplus of between 2,432 and 2,954 acres of industrial land in the Metro area. The SCLS
indicated that there was a deficit of at least 158 commercial land for the planning period. Land supply in
Springfield is not in proper relationship to land use needs.
.
Approval of this Metro Plan diagram amendment would help Springfield to remedy this imbalance. The
subject property isparticulariy suitable for a plan diagram amendment from industrial to Community
Commercial with a Nodal Development Overlay District. There is a large amount of hOUSing in the area that
is underserved with regard to commercial opportunities. The subject parcel is in anarea where a mix
compatible and complementary uses is possible (Exhibit 1, Exhibit 2). Approval of this amendment request
is an opportunity for the City of Springfield to develop this area into an area where commercial, residential
and industrial users exist adjacent to one another and complement each other.
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Ensuring that land use supply is kept in proper relationship to land use needs means maintaining a ready
supply of buildable lots in each land use designation in a variety of sizes. At the time of publication of the
SCLS there were seven vacant commercial sites of the approximate size of the property subject to this
application (SCLS, Table 2.3, Exhibit 3). Discussion supra has noted the /imitations on those sites including
service constraints, poor location, or subsequent development. The net result of these constraints is that
there are no sites of the size and quality of the subject parcel currently vacant and zoned commercial.
.
Approval of the Plan Diagram Amendment request will encourage commercial development in the area and
will also retain a highly desirable site for industrial development. As the MILPR notes:
'2. Based on past trends, most of the demand will be for sites under 20 acres. AIf of the sites
developed in the past 2 years have been less than 20 acres. . . .'
Assuming approval of the Plan Diagram Amendment and concurrent Legislative Zoning Map Amendment,
the area will still have excellent potential for LMI development by retaining 18 acres of LMI zoned parcels.
This is a desirable outcome because as the MILlR notes:
'5. If current development trends continue, alf of the short term vacant industrial sites under 20
acres may be developed over the next decade.'
The proposal would add two desirable sites to the respective inventories and wi/I help ensure land use
supply is kept in proper relationship to land use needs.
The proposal will also achieve Objective Three of the Growth Management Principle/Element which
provides:
'3. Encourage development of suitable vacant land where available, thus capitalizing on public
expenditures already made for these services.'
.
The applicant's proposal will encourage the development of suitable vacant lands where available. The
subject parcel is suitable for a plan diagram amendment to Community Commercial with a Nodal
Development Overlay District because of its proximity to the residential uses to the east and proximity to
future industrial development. Commercial development at this location has abHity to reduce reliance on the
automobile and promote an energy efficient development pattern. ,Because the property is already fully
served by urban services near term. development of the subject parcel with commercial uses will capitalize
on public expenditures made for the provision of these services.
The compact growth principles that characterize the Growth Management Element/Principle are
fundamentalto the entire Plan and run through each ofthe individual elements. The discussion supra has
addressed how the proposal wi/! achieve compact urban growth that is basic to the entire Plan. The
discussion infra will address specific Plan elements.
B. Individual Metro Plan Elements
The specific plan elements contain an introductory text, applicable goals, findings, objectives and policies.
The specific plan elements are used when making decisions based on the plan. When making decisions
based on the Plan, not all goals and policies can be met in every instance; some of the goals, objectives
and policies conflict. Therefore, use of the Plan requires a "balancing" of its various components on a case
by case basis, as well as a selection of those goals, objectives and policies that are, most relevant. On
balance, the goals, policies and principles of the Metro Plan support approval of this plan diagram
amendment request.
1. Residential Land Use and Housing Element
.
The introductory language of the Housing Element states that the Housing Element addresses Statewide
Planning Goal 1 0 '[t]o provide for the housing needs of the citizens of the State.' The Metro Plan notes
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.
.
.
that '[hJousing demand originates with the basic need for shelter but continues into the realm of
creating communities.' This aspiration is reflected in the Goal of the Housing Element to '[pJrovide viable
residential communities so all residents can choose sound affordable housing that meets individual
needs.' Individual needs include the very basic need for shelter but also includes the need for viable
communities that meet individual needs. The applicant submits that this application will meet the need of
residents of the area by allowing commercial services to locate in convenient proximity to residential uses.
. The commercial uses will provide employment opportunities and commercial services to these residents,
helping to meet their individual needs and create a viable community. The proposal will implement Policy
11 of this element which provides:
'Policy A.11 Generally locate higher density residential development near employment or
commercial services, in proximity to major transportation centers or within
transportation efficient nodes. '
Approval of this Plan Diagram Amendment request will implement this Policy and achieve the Policy's
intended benefits. There is a substantial amount of medium density residential housing near the subject
parcel. This housing qualifies as higher density housing for the purposes of this policy because it is higher
than Springfield's current average housing density per acre. Currently, the "higher density" residential
housing is a potential employment area (the existing LMI area) that is currently vacant; the housing is not
particularly hear any commercial services and while the housing is near a major transportation center it is
not in a transportation efficient node. The applicant's proposal would allow for the location of commerciall .
and or office uses (and resulting employment opportunities) near higher density residential housing;
sufficient area for light medium industrial development would remain; and, the resulting mix of
complementary uses will result in a transportation efficient nodal development area.
The applicant submits that the area in which the subject parcel is located presents the City with a "nodal
type development" opportunity. ,The area was identified as TransPlan Node 9C (Exhibit 1). While not
ultimately selected by the City, identification in the TransPlan speaks to the potential of the area for this
mixed use type development.
The characteristics of a "node" and the applicant's vision will result in a development pattem that accrues
the benefits of nodal design. Nodal development is a flexible and diverse concept and nodal developments
will vary in the amount, type, orientation, and percentage of commercial, industrial, civic and residential
uses. Generally speaking, nodal development seeks to increase population and employment ion well
defined areas with good transit service, a mix of compatible and diverse uses and Improvements that are
bicycle and transit friendly. The applicant's vision, identified in Exhibit 2 as the "potential nodal development
area" will share most of the characteristics and benefits of this development strategy. The area will be
characterized by a mix of uses that are within convenient walking and bicycling distance from one another.
The Emx expansion line will be near the subject property and the area is currently served by LTD. There
are nearby public spaces and medium density housing nearby.
The proposed Plan Diagram Amendment will also carry out Policy 12 of the Residential Density Section of
the Housing Element of the Metro Plan which provides the City should:
'A. 12 Coordinate higher density residential development with the provision of adequate
infrastructure and services, open space and other urban amenities.'
The recently developed higher density residential development on 30th Street is served by adequate
infrastructure; however, there is a scarcity of commercial services in close proximity to the residential
development. If a resident of this area wants to obtain commercial services they have to enter onto Main
Street and utilize the linear commercial development along that roadway or drive to the Mohawk/Olympic
area. This development pattern ensures reliance on the automobile. The proposal presented for review
and decision here helps to remedy this situation by coordinating higher density residential development with
other urban amities.
(ii) Design and Mixed Use Section, Housing Element
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The Metro Plan defines mixed use as a building, project, or area of development that contains at least 2
different land uses. Exhibit 2 shows the "potential nodal development area" in which the subject parcel is
located and the proposed types, area, percentages, and location of each type of use. The resulting mixed
use area will accrue the benefits of nodal development including Finding 23 which states:
.
'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.'
As noted supra, the area in which the subject parcel is located is identified in Exhibit 2 as the "potential
nodal development area." Exhibit 2 shows the areas configuration assuming approval of the applicant's
proposed Plan Diagram Amendment. The area would be characterized bya healthy mix of uses including:
LM125.2 acres, 37.6%; MDR 23.7 acres, 35.3%; CC 13.5 acres, 20%; and, H14.7 acres, 7%, Thus, the
area presents an opportunity to reduce reliance on the automobile.
The proposal presented for review and decision here will facilitate a nodal type (mixed use) development
pattern. The proposal would locate a commercial center near a concentration of population. Most .
commercial centers in the area are located if I. a linear fashion along Main St. that encourages reliance on
the automobile and represents an outdated planning strategy. The proposed proximity of commercial uses
to the existing medium density residential development and future industrial development in the area has
potential to minimize and eliminate automobile trips by encouraging pedestrian and bicycle trips. The
benefits presented by nodal development patterns should be rnade available to residents of the jurisdiction
wherever these opportunities present themselves. This direction is implicit in Policy 22 of this Element
which states:
'A. 22 Expand opportunities for a mix of uses in newly developing areas and existing
neighborhoods through local zoning and development regulations. I
.
The applicant submits that the proposal would expand the opportunity for a mix of uses in an existing area
(the medium density residential housing in the area was recently developed). The current zoning (Exhibit 5)
encourages development of the area almost exclusively with light medium industrial uses. This zoning does,
not reflect the needs of residents of the area nor does the current zoning correlate the effective supply and
demand for commercial and industrial land use designations. The policy directs the City of Springfield to
administer its Development Code in a flexible manner and to encourage zoning that will facilitate mixed-use
type facilities. The applicant submits that this proposal will expand opportunities for a mix of uses that will
accrue significant benefits to the jurisdiction as well as residents of the area and will implement this policy.
The discussion supra has demonstrated compliance with the Goals, Objectives and Policies of the
Residentia/ Housing Element of the Metro Plan. Locating commercial services near existing medium
density residential housing units and future industrial uses will result in a compact development pattern.
The resulting area will decrease the frequency, duration and length of automobile trips. This mixed use, or
"nodal ~ype development" will increase standards of living and decrease transportation costs. The
applicant requests that the City accrue these benefits by approving this request, recognizing that these
development strategies are appropriate.
2. Transportation Element
The introductory language of the Transportation Element provides the Element addresses surface
Transportation in the Metro Area. TransPlan provides the basis for the surface transportation portions of the
Transportation Element. The introduction further notes that there are three types of transportation planning
strategies reflected in the component parts of the element. These strategies are Transportation Demand
Management (TOM), Land Use, and Systems improvements. The purpose of TOM is to eliminate or
redistribute vehicle trips and encourage alternative modes thereby reducing systems costs. Land use
strategies are intended to encourage development patterns that will reduce reliance on the automobiles,
reduce trip lengths and support alternative modes. The proposal implements these goals.
.
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.
As applied to this amendment request, Goal 12 has been satisfied by establishing that development under
the proposed plan and zoning designations will not create substantially greater or different transportation
demands and impacts than development under the existing acknowledged designations. The applicant has
looked at existing uses at the site and what would likely be permftted in order to generate a trip cap that will
not create substantially different of greater transportation impacts than under the current designation
The proposal carries out the intent of the TDM portion of the Transportation Element. Briefly, the nodal
development contemplated in this proposal will redistribute and eliminate vehicle trips by providing a
location for residents of the newly developed medium density residential areas to obtain commercial
services. Residents of will be able to combine vehicle trips; they will be able to purchase goods and
services returning to their homes or leaving their homes eliminating the need for additional motor vehicle
trips. The proximity of the commercial use to the residential and industrial areas will also eliminate vehicle
trips by encouraging residents and employees to walk or bicycle to their destinations. The mixed use and
compact development pattern will make possible the state and local goals of reducing reliance on the
automobile, reduction of trip lengths and support for alternative modes of transportation. Also, the trip cap
proposed by the applicant will not result in any greater impacts to the transportation system than what would
be permftted under the current zoning designation.
A. Findings, Transportation Element Land Use Section
.
The findings of the Land Use Element are the most relevant portion of the Transportation Element to the
proposed Plan Diagram Amendment. There are numerous findings in this section of this element that
support the applicant proposal. Foremost among these findings is Findinr;; 1 which provides:
'1. The Oregon Transportation Plan (OTP) 1992 states that Oregon's land use patterns have tended
to separate residential areas from employment and commercial centers, requiring people to
drive almost everywhere they go; that the results have been increased congestion, air pollution,
and sprawl in the metropolitan areas and diminished livability. '
Separation of uses results in inconvenience, congestion, air pollution, sprawl, and increased transportation
costs. Commercial development patterns in Springfield have generally limited community commercial
centers to a narrow strip along Main St. This linear and inefficient development pattern isolates residential
areas from commercial areas and decreases livability of the Springfield area and increases reliance on the
automobile. Integrated infill development of the type proposed here has the potential to reduce motor
vehicle trips and to limit congestion, air pollution and urban sprawl:
As shown in Exhibit 2, the area in which the subjectparcel is .Iocated would, following approval of the Plan
Diagram Amendment and concurrent Legislative Zoning Map Amendment be characterized by a mix of
. uses including: LMI, 25.2 acres, 37.5%; MDR, 23.7 acres, 35.3%; CC 13.5 Acres, 20%; and, HI, 4.7 acres,
7%. The area would integrate industrial, residential and commercial uses and is development of the type
that limits sprawl, congestion and air pollution. Additional findings support this proposal including Finding 2
of the Land Use Section of this Element which provides:
'2. [PJeople who live in neighborhoods with grid pattern streets, nearby employment and shopping
centers, and continuous access to sidewalks and convenient pedestrian crossings tend to make
more walking and transit trips.'
The applicant's proposal would result in an area characterized by a careful mix of complementary
residential, commercial and industrial uses. This compact development pattern will encourage more
pedestrian and bicycle trips and will reduce reliance on the automobile as provided for in the Oregon
Transportation Plan (hereinafter OTP). Finding 4 of this section ofthis Element provides:
.
'4. OTP policies emphasize reducing reliance on the automobile and call for transportation
systems that support mixed land uses, compact cities, and connections among the various
transportation modes to make walking, bicycling, and the use of public transit easier. '
4-37
The development area, the potential "nodal development area"wil/ be characterized by a mix of uses in a
compact configuration. This development pattern will encourage walking and bicycling. Given the benefits
of this type of development, the applicant suggests the City should-interpret the Metro Plan in a manner that
facilitates mixed use development. This suggestion is supported by the fifth finding of this element which
provides:
.
'5. The Oregon Transportation Planning Rule (TPR) [OAR 660-012-0060 (1)(c,d)(5)] encourages
plans to provide for mixed use, pedestrian friendly development, based on information that
documents the benefits of such development and the Land Conservation and Commission's
policy interest in encouraging such development to reduce reliance on the automobile.'
The benefits of mixed use, compact, infil/ development are decreased pollution, congestion sprawl and
increased energy efficiency. The commercial services in the resulting mixed use area would serve residents
, of the nearby residential housing and employees of future industrial developments in the area. The
proximity of these complementary uses will accrue the documented benefits of mixed use development to
the City and its residents; the applicant encourages the City to administer its development code and the
Metro Plan in a manner to provide mixed use_ development in this area. ,
'9. Nodal development supports the fundamental principles, goals, and policies of the adopted
Metro Plan to achieve compact urban growth, increase residential densities, and encourage
mixed use in designated areas.'
The request presented for review and decision here presents an opportunity for the City of Springfield to
promote nodal development in an area that was identified as TransPlan node 9C. Nodal development is a
mixed-use pedestrian friendly land use pattern that seeks to increase concentrations of population and
employment in well defined areas with good transit service, a mix of diverse and compatible land uses, and
public and private improvements designed to be pedestrian and transit oriented. .
.
Approval of the application would result in a nodal development area. Nodal development requires design
elements that support pedestrian environments and encourage transit use, walking and bicycling and a mix
of diverse and compatible land uses. Nodes will vary in the amount, type, and orientation of commercial,
civic and employment uses; target commercial floor ratios; size of buildings; and the amount and types of
residential uses. . The proposed nodal development area presents a significant opportunity for the City of
Springfield to pursue a nodal development strategy that will accrue significant benefits for residents and the
jurisdiction generally.
The Transportation Element of the Metro Plan supports the applicant's proposal. The compact development
configuration proposed by the applicant will reduce dependence on the automobile, shorten trip lengths, '
reduce trip frequency, shorten trip duration, and lower systems costs. The proposal will limit air pollution,
urban sprawl, and increase standards of living for residents of Springfield. The applicant submits that
compact, mixed use growth of the type proposed here is consistent with the Growth Management Principles
of the Plan that encourage compact growth and carries out the intent of the Transportation Element. For
these reasons, the applicant urges approval of this Plan Diagram Amendment request.
2. Economic Element
The purpose of the Metro Plan's economic element is to implement Statewide Planning Goal 9 'to diversify
and improve the economy of the state. In order to grow the region's economy it is essential that the
supply of land in each zoning designation include not only sites sufficient in size to accommodate
the needs of the commercial or industrial operations (including expansion), but also includes sites
which are attractive from the standpoint of esthetics, transportation costs, labor costs, . . . proximity
to markets, and anticipated growth of local markets.' The proposal will help maintain an adequate
supply of both commercial and industrial land.
There is an acute shortage of readily developable commercial land in Springfield; the proposal will address
this situation. The area will also remain highly desirable for both industrial expansion and new industrial
.
4-38
.
development. The MILPR notes that 'most demand (industrial) will be for sites under 20 acres.' The
MILPR further notes that 'all of the sites developed in the past two years have been under 20 acres. .
'and goes on to say that at current development rates 'all of the short term vacant industrial sites under
20 acres may be developed in the next decade.' The proposal will add a development ready site under
20 acres to the inventory and facilitate the provision of commercial services to residents of the area and
future employees of subsequent industrial development in the area. Compact, mixed use zoning patterns of
the type presented for review and decision here are supported by the Findings, Goals, Objectives and
Policies of the Metro Plan Economic Element.
i. Findings, Metro Plan Economic Element
Finding 12 of the economic element of the Metro Plan states:
'12. There are presently inefficiently used resources in the metropolitan area, including land. . . .'
The vacant subject parcel and remaining vacant industrial properties are an inefficiently used resource. The
area was identified as 7-17, having a high potential for short term industrial development in MILlR. The
majority of Site 7-17 remains vacant and the portions that have been developed have been developed with
residential uses.
.
The vacancy causes leapfrog development that leaves underutilized parcels in its path. ' This leads to
increased sprawl and premature pressure on the urban growth boundary and costlier provision of urban
services. Infill development is efficient development. A Community Commercial with a Nodal Development
Overlay District designation of the subject parcel will make efficient use of limited land resources. As
discussed in great detail supra, there is an acute shortage of commercial land in Springfield and a surplus of.
industrial land; thus, the subject parcel is more likely to be developed in the near term if designated for
commercial use. Approval of this request will also result in a, highly desirable LMI site that will be more likely
to be developed in the short term. Approval of this amendment request will facilitate a more efficient land
use pattern in the Metro area. .
The nodal development provided for in this proposal will result in a characteristic mix of uses, in fill
, development, more intense development, decrease sprawl, enhance neighborhood livability and will make
efficient use of land resources in the Metro area. The proposal will also spur economic growth in the region.
Finding 13 states:
'13. The Metropolitan economy is made up of a number of interrelated and important elements, one
of which is construction and construction related activities. '
There is already a user for the day care facility associated with the existing Goodwill retail store. Assuming.
approval of this proposal, the State Department of Motor Vehicles will move into that facility. There will be
required upgrades of the facility which wHl facilitate employment in the construction sector of the economy.
The scarcity of development ready commercial sites in Springfield means that the remainder of the subject
property will also be developed in the near term facilitating continued employment opportunities in the
construction sector.
Finding number 15 of the Economic Element of the Metro Plan also supports approval of this request.
Finding 15 states:
.
'15. The mixture of commercial and office uses with industrial uses can reduce or enhance the utility
of the industrial areas for industrial purposes, depending on circumstances. Uncontrolled
mixing creates problems of compatibility and traffic congestion, and may limit the amount of
land available for industrial development. Limited mixing, subject to clear and objective criteria
designed to minimize or limit incompatibility, traffic area more pleasant, convenient,
economical, and attractive as a place to work or locate. '
4-39
The area identified in Exhibit 2 as the "potential nodal development area is not an example of uncontrolled
mixing. Rather, the mix of complementary uses will enhance the area for residents and employees of any
future industrial development. The area was identified as TransPlan Node 9C which means that the area
, has identified potential for this type of development pattern. The limited mixing proposed here will not
reduce the utility of the area for industrial use; there will be 18 vacant acres of LMI zoned properly located
conveniently near commercial services and will make the remaining industrial area a more pleasant,
efficient, convenient, economic and attractive place to work and locate.
.
ii. Objectives, Economic Element
'7. Ensure compatibility between industrial lands and adjacent areas.'
The proposal helps ensure compatibility between industrial lands and adjacent uses. Currently, the heavy
industrial user DYNEA on 28th St. creates a visual conflict for residents of the adjacent medium density
residential development across for the subject property. Approval of this plan amendment application would
facilitate development of the subject property with attractive and appropriate commercial uses. These uses
visually screen the existing heavy industrial uses for the residents of the medium density residential housing
to the east.
Commercial designation of the subject property would further promote compatibility between industrial lands
and ad/acent areas by providing commercial services and or office uses to the employees of future industrial
development in the area.
The proposed plan amendment request also carries out Economic Objective 11 which states:
'11. Attempt to find ways to more effectively use inefficiently used resources such as hind. . . .'
The applicant's vision for the potential nodal development area will efficiently use land resources in
Springfield. The parcel and the area are largely vacant. This leapfrog deve,lopment is inefficient in terms of
systems investment, energy consumption and land use. The applicant's proposal will result in a more
efficient use of land; the subject parcel is more likely to be developed in the near term is designated
Community Commercial with a Nodal Development Overlay District. This proposal will lead to infill
development of the type that reduces outward pressure on the UGB and utilize existing services.
.
The proposal will also carry out Metro Plan economic objective 12. Objective 12 states:
'12. Provide for the limited mixing of office, commercial, and industrial uses subject to clear,
objective criteria which: (a) do not materially reduce the suitability of industrial, office, or
commercial areas for their primary uses; (b) assure compatibility; and (c) consider the potential
for increased traffic congestion. '
The proposal presented for review and decision here will provide forlimited mixing of commercial, office and
industrial uses subject to clear and objective criteria that will make the area a more attractive place to live
and work. The proposal is for limited mixing in an area identified as TransPlan Node 9C. Commercial
services in this location would benefit both the existing residences in the area and prospective industrial
users of the remainder of the area. Commercial designation would not materially reduce the suitability of
the remaining industrial parcels. Rather, the Plan Amendment request would enhance the utility of the
remaining industrial area and ensure compatibility by providing commercial services to industrial users of
the remaining developable area. The plan amendment will also enhance the area by screening the
residential uses in the area form the visually unappealing industrial use taking place on the Dynea facility.
iii. Economic Element Policies
The proposed plan amendment request wi/I support policy 2 of the Economic Element of the Metro Plan
which states: '
.
4-40
. '2. Encourage economic development which utilizes local and imported capital, entrepreneurial
skills, and the resident labor force.'
The proposal will encourage near term economic development. The initial use of the resident labor force
will involve upgrading the existing day care facility to meet the needs of the prospective client DMV.
Approval of the Plan Amendment request and concurrent Legislative Zoning Map Amendment will require
additional facilities upgrades. Also in the near term, the subject property will likely be developed with
additional commercial and! or office uses. These developments will also utilize the resident labor force.
Upon completion, the commercial users will employ residents of the area.
The proposal also carries out Policy 6 of the Economic Element of the Metro Plan. The policy states:
'6. Increase the amount of undeveloped land zoned for light industrial and commercial uses
correlating (emphasis added) the effective supply in terms of suitability and availability with the
projections of demand.'
.
The proposed Plan Amendment request will increase the amount of undeveloped land zoned for
commercial uses and will help correlate the effective supply in terms of suitability and availability with
projections of demand. There is an acute shortage of commercial land and a surplus of industrial land in
Springfield. The supply of commercial land does not correlate with demand. Even in the best case scenario
there is a deficit of 158 acres of commercial land through the planning period; the actual shortfall may be
much greater. Redesignation and rezoning were identified as methods to increase the supply of
commercial land in Springfield's UGB. However, rezoning essentially reduces other land use inventories.
Given the surplus of industrial land, this designation is the best candidate for an inventory reduction to
address the extreme shortage of commercial land. This is particularly true where the area will retain a highly
desirable industrial site and where redesignation of a portion of the industrial area will improve the
appearance and functioning of the remainder of the area.
The MILlR found that there were 4,039 acres of land on 189 sites that were designated or zoned industrial
within the Metro-UGB. Approximately 3,604 acres on 180 sites were considered buildable; 709 buildable
acres were cQntained in Springfield's UGB. The most likely projected 20 year demand for industrial land
through the planning period is estimated at 650 gross acres (MILPR). The best estimate from 1993
provided that there was a siJrplus of 2,432 and 2,954 acres ofindustrially zoned land in the Metro area.
The actual demand for industrial land is impossible to project. According to the MILPR, demand for
industrial land could be as great as 1172 acres. If that projection is accurate, the supply exceeds the 20
year demand by 2,432 acres. Given either demand projection, the supply of industrial land exceeds what is
needed to accommodate the economic growth in that sector of the economy. Given these statistics and the
requirement that the jurisdiction maintain an adequate supply of commercial/and as .well as industrial land,
there is no reason for the City to deny this Plan Diagram amendment based a perceived need to retain what
amounts to a surplus of industrially zoned land.
.
According to the SCLS, the MILS found that there were 4039 acres of land on 189 sites that were
designated or zoned industrial within the Metro-UGB. Of this total inventory, 3604 acres were considered
buildable and 709 buildable industrial acres were located in Springfield. The SCLS states that the 2,432 to
2,954 acre surplus provides a degree of market choice. . . (SCLS, pp, 23). This surplus provides more than
a degree of market choice; there is a glut of industrially zoned land. The surplus of industrially zoned land
drives down the market value of industrial land. The reduction in FMV of industrially designated sites
decreases the incentive for owners of industrial land to make these properties available for development.
The surplus impedes economic growth by increasing the "market factor" which is the amount of land zoned
for a type of use that is not available for development because owners of the property do not want to
develop the parcel until a later date. At the same time, the shortage of commercial zoned lands in
Springfield makes it extremely difficult and prohibitively expensive for commercial enterprises to locate in the
Springfield area.
Approval of this plan amendment request will retain and enhance the value and utility of the remainder of
the area for industrial users. MILlR notes that new industrial users seek sites that are: three to twenty acres
4-41
in size; have good site and highway access; well serviced; free of constraints; and well served by urban
amenities and near urban services. The Plan Diagram Amendment will not substantially reduce the amount
of land available for new industrial users not will it reduce the quality of the remainder of the area. Based on
an analysis of these factors, approval of the Plan Diagram Amendment will leave a potential industrial
development site that is desirable for new industry while also allowing for a mix of uses that will further the
economic development of Springfield. As the Metro plan notes, careful mixing (of the type proposed here)
can actually lead to an increase in value for indu,strial users.
.
Exhibit 2 shows the configuration of the area as proposed by the applicant. As the exhibit clearly shows, a
18 acre LMI site with good road and rail access will remain. The approximately 18 acre LMI site is the size
which is most desirable for new industrial users as noted in the MILlR. The subject parcel will remain
constraint free and well served by urban services. Approval of the Plan Diagram Amendment and
concurrent Legislative Zoning Map amendment will not reduce the inventory of vacant industrial sites
between 10-19 acres. The Metropolitan Lands Site Evaluation provides that there were 5 sites between 10-
19 acres designated for LMI use. The area in which the subject parcel is located was designated as site 7-
17, a 52.9 acre site with one owner zoned LMI/HI. The character of the area has since changed
significantly. The proposal would add a highly desirable site to the City's 10-19 acres LMI inventory and
would improve the inventory by locating commercial uses near industrial uses and by buffering residential
uses from future industrial development.
The policy of correlation between supply and demand for industrial and commercial land is not reflected in
the current inventories. The applicant respectfully requests that the City recognize the detrimental economic
and practical effects of the imbalance between supply and demand for each land use category and partially
remedy this situation through approval of this Plan Amendment request.
As noted supra, approval of the request will improve the appearance and functioning of the remaining
industrial area carrying out Policy 8 of this Element which provides:
'8. Encourage the improvement of the appearance of existing industrial areas, as well as their
ability to serve the needs of existing and potential light industrial development.'
.
The plan amendment request will eventually improve both the appearance and functioning of the area.
Light and medium industrial firms prefer to be in an attractive area that is well served by commercial
services. The plan amendment request would facilitate commercial development in the area enharicing the
areas ability to meet the needs of prospective industrial users, The proposal will also improve the
appearance of the area.
The only Metro Plan Economic Element policy that does not support this application is Policy 12. However,
Policy 12 does not outright forbid the conversion of light and medium industrial land to commercial
designations. When considered in light of the other Metro Plan policies, findings, and objectives as well as
the findings and strategies of the SCLS, MILlR and MILPR the policy is less meaningful.
Policy 12 provides:
'12. Discourage future Metropolitan Area General Plan Amendments that would change
development-ready industrial lands (sites defined as short-term in the Metropolitan Industrial
Lands Special Study, 1991) to non-industrial designations.'
Policy 12 does not contain an outright prohibition changing development ready industrial sites to non-
industrial designations. It is important to keep in mind that when making decisions based on the Plan, not all
of the goals and policies can be met to the same degree in every instance; some of the goals, objectives
and policies conflict. Therefore, use of the Plan requires a 'balancing' of its various components on a case
by case basis, . ., On balance, given the other findings, policies, goals and objectives of the plan the plan
supports this application. .
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.
.
.
For example, Policy 6 of the Economic Element of the Metro Plan that suggests correlating the supply of
land zoned for Industrial and commercial uses with demand. Given the extreme surplus of industrially
zoned land and the deficit of commercial land there is not a correlation between existing supply and demand
for the two categories, The 'correlation policy' conflicts with Policy 12 which discourages rezoning
development ready industrial parcels to other designations. Given the desperate commercial lands situation
in Springfield, the policy of correlating existing supply with demand is more important than the policy of not
converting development ready light medium industrial sites to other uses. Especially where a substantial
amount of highly desirable LMI parcels will remain in the area.
Furthermore, the site designated as 7-17 in the industrial lands survey has changed in character since it
was identified as having short term development potential, At that time, the site was a 52.9 acre parcel
having one owner. The amount of available industriallandhas been reduced and extensive medium
density residential development has changed the nature of the area. Disallowing commercial development
on the subject parcel conflicts with Policy 29 of the Economic Element. That Policy provides for expansion
of existing commercial facilities as residential densities change.
Policy 28 also conflicts with the policy of discouraging the conversion of LMI parcels to other types of uses.
A vital role is played by commercial facilities that provide goods and services to a particular area. Not only
do these types of developments provide goods to residents of a particular area but locating these types of
developments near areas of residential development carries out the policies of the transportation element of
the Metro Plan which is intended to reduce reliance on the automobile by shortening trip time and duration
and frequency. The development of the subject parcel with commercial and or office uses will provide
essential services to the residents of the area and will enhance the utility of the remaining industrial area.
This policy conflicts with not only the other policies of the Economic Element of the Metro Plan as well as
well as the policies of but the Transportation element and the Residential and Housing element. On
balance, the policies of the Metro Plan economic element support approval of this plan amendment request.
The policies, finding objectives and intent of the Metro Plan and the Statewide Planning goals that support
approval of this plan amendment request should not be frustrated on the basis of this single outdated policy.
The proposal is also supported by Policy 23 of the Economic Element which states:
'23. Provide for limited mixing of office, commercial, and industrial uses under procedures which
clearly define the conditions under which such uses shall be permitted. and which: (a) preserve
the suitability of the affected areas for their primary uses; (b) assure compatibility; and (c)
consider the potential for increased traffic congestion. i
The proposal presented for review and decision here provides for limited mixing of commercial and
industrial uses while preserving the area for industrial uses. The proposal is for compatible commercial
. development which will enhance the utility of the area. The proposal would resulUn a nodal development
will mix commercial, residential and industrial uses. Given the significant benefits of nodal development, the
City should be flexible in implementing nodal development concepts and should apply these concepts to
areas of the city that present nodal development opportunities.
The applicant's suggestion that the City be flexible in its implementation of nodal development strategies
has a foundation in the definition of nodal development itself. Nodal development is a concept that allows
for flexibility of uses and percentages of area dedicated to each type of land use category in the nodal
development area to best suite the needs. of the community. Generally, nodal development is a mixed-use
pedestrian friendly land use pattern that seeks to increase concentrations of population and employment in
well defined areas with good transit service, a mix of diverse and compatible land uses, and public and
private improvements designed to be pedestrian and transit oriented. Nodal developments will vary in the
amount, type, and orientation of commercial, civic and employment uses; target commercial floor ratios; size
of buildings; and the amount and types of resiaential uses,
This policy essentially provides that nodal type development (limited mixing of uses) will be allowed subject
to clear and objective criteria that are intended to ensure that the benefits of nodal development are
4-43
accrued. The applicant has discussed in great detail supra how the proposed development will locate a
compatible mixes in proximity to one another that will enhance the area and achieve the efficiencies of a
node. The applicant submits that this proposal is the type of limited mixing provided for in this policy and
that the policy supports approval of this plan amendment request. .
.
The applicant further submits that policy 28 of the Economic Element of the Metro Plan supports approval of
this application. Policy 28 states:
'28. Recognize the vital role of neighborhood and commercial facilities in providing services and
goods toa particular area.'
The applicant respectfully requests that the City implement this policy recognizing the vital role that
commercial facilities play in providing goods to a particular area through approval of this plan amendment
request. A commercial facility in this location could provide commercial services to residents of the medium
density residential housing near the subject property as well as future industrial development in the area.
Currently, residents of this area are forced to use 31 st Street to access commercial facilities located on Main
St. or to head north to shop in the Mohawk/Olympic "big box" area. The applicant request that the City
recognize the importance of this policy and the vital role that commercial services play by approving this
plan amendment request which will eventually allow residents of this area to obtain commercial services in .
proximity to their homes.
Policy 29 of the Metro Plan Economic Element also supports approval of this plan amendment request.
Policy 29 states:
'29. Encourage the expansion or development of existing neighborhood commercial facilities as
surrounding residential densities increase or as the characteristics of the support population
change. '
.
The subject parcel is adjacent to the existing Goodwill Retail Store. The proposal may be viewed as an
expansion of an existing commercial facility. The other elements of this policy are also apposite to the plan
diagram amendment request. The characteristics of the surrounding area have changed. Large portions of
vacant industrial land have been converted to Medium Density Residential housing. Thus, the surrounding
residential densities have increased and the need for services has increased. This policy supports approval
of this plan amendment request. "
A. Residential land Use and Housinq Element
Residential Density.
"A.10 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." Page I/I-A-8
"A.12 Coordinate higher density residential development with the provisions of adequate
infrastructure and services, open space and other urban amenities." Page I/I-A-8
Design and Mixed Use.
"A.22 Expand opportunities for a mix of uses in newly developing areas and existing
neighborhoods through local zoning and development regulations." p, III-A -10
F. Transportation Element
Land Use
"F.1 Apply the nodal development strategy in areas selected by each jurisdiction that have
identified potential for this type of transportation-efficient land use pattern." P.1I1-F-4
.
4-44
.
"FA Require improvements that encourage transit, bicycles, and pedestrians in new
commercial, public, mixed use, and multi~unit residential development." P. 111-F-5
The proposed amendments protect higher residential density: 1) In the'Mixed Use Commercial District,
, residential uses are permitted above commercial uses; and 2) In the Mixed Use Residential District, multi-
family residential is the primary use. The mixed use zoning districts encourage transit, bicycles and
pedestrian modes of travel. The nodal development strategy is implemented by the Nodal Development
Area Metro Plan land use designation. '
Staff's Response and FindinQ:
These applications comply with SDC Section 8.030(1) because the applicant ha~ cited numerous Metro
Plan principles, findings, objectives and goals inclusive of the arguments for the need for the Community,
Commercial zoning as well as the need to implement the Metro Plan Nodal Development Area
designation and the SDC INodal Development Overlay District. Staff concurs with the applicant's,
submittal.
SDC Section 8.030(2) "Applicable State Statutes;"
Applicant's Submittal:
.
"SDC 8.030(2) provides as a criterion of approval that the Refinement Plan amendment be consistent
with applicable State statutes. The State statutes which apply to this request include those statutes
requiring compliance with the Statewide Planning Goals, The statute requiring compliance is ORS
197.250. This application can be deemed in compliance by adoption of findings relating how the
application conforms to each of the applicableStatewide Planning Goals...."
Staff's Response:
Staff concurs with the applicant's response citing ORS 197,250, As stated previously, this is a combined
staff report for all three applications. Compliance with the State-wide Planning Goals has been
addressed above. - '
In addition, these applications comply with ORS 197.610 POST ACKNOWLEDGEMENT PROCEDURES
which applies to the DLCD notification as required as part of the processing these applications. The City
sent notice for the proposed "housekeeping" amendments via FedEx to the OLeO O,n May 4, 2006, The
notice included a description of the proposed amendments with commentary, The notice needed to pe
received by DLCO by May 5th, 45 days prior to the first evidentiary hearing (before the Planning
Commission) scheduled for June 20, 2006. FedEx acknowledged OLCO receipt of the proposed
amendments on May 5, 2006. '
Staff's Findinq:
These applications comply with SDC Section 8,030(2) because the specific ORS cited above have been
addressed,
SDC Section 8.030(3): "Applicable State-wide Planning Goals arid Administrative Rules."
Staff's Finding:
.
This criterion is also found in SDC SeCtion 7.030(3)(a) under the Metro Plan diagram amendment criteria
and findings. Staff found that the applicant complied with that criterion and therefore, complies with
criterion 8,030(3).
4-45
.1 X. SPRINGFIELD ZONING MAP AMENDMENT CRITERA AND FINDINGS
.
SDC Article 12 describes the criteria to be used in approving a Springfield Zoning Map amendment. SDC
Section 12.030(3) lists: "Zoning Map amendment criteria of approval: (a) Consistency with
applicable Metro Plan policies and the Metro Plan diagram; (b) Consistency with applicable
Refinement Plans, Plan District maps, Conceptual Development Plans and functional plans; and
(c) The property is presently provided with adequate public facilities, services and transportation
networks to support the use, or these facilities, services and transportation networks are planned
to be provided concurrently with the development of the property. (d) Legislative Zoning Map
amendments that involve a Metro Plan Diagram amendment shall: 1. Meet the approval criteria
specified in Article 7 of this Code; and 2. Comply with Oregon Administrative Rule (OAR) 660-012-
0060, where applicable"
SDC Section 12. 03 o (3}(a) " Consistency with applicable Metro Plan policies and the Metro Plan
diagram;"
staff's Response and Findinq:
This criterion is also found in sot Section 8.030(1) under the Metro Plan diagram amendment criteria
and findings, Staff found that the applicant complied with that criterion and therefore, complies with
criterion 12.030(3)(a).
SDC Section 12.030(3)(b) "Consistency with applicable Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans; and"
Applicant's Submittal:
.
"Upon approval of the applicant's concurrent Refinement Plan Text amendment, this application will be
consistent with the applicable Refinement Plan. "
Staff's Response:
The Mid-Springfield Refinement Plan contains commercial development policies that must be applied
whenever there is a proposed change in designation and zoning, in this case from industrial to
commercial. The refinement plan was in place before the TransPlan Potential Nodal Development Area
map was adopted. There are currently no commercial poliCies that would apply to conversion of industrial
to commercial land within the boundary of potential Nodal Area 9C. This is the reason why the
refinement plan text is being amended. Please refer to Section V. MID-SPRINGFIELD REFINEMENT
PLAN TEXT AMENDMENT - PROPOSED TEXT of this staff report for a detailed explanation of the
proposed refinement plan text amendment. There are no Plan District maps or Conceptual Development
Plans that apply to the subject property. There are no functional plans that are affected by these
applications.
Staff's Findinq:
These applications comply with SDC Section 12.030(3)(b) because the refinement plan diagram and text
is being amended to implement the INodal Development Overlay Area designation and Overlay District.
Section 12.030(3)(c) "The property is presently provided with adequate public facilities, services
and transportation networks to support the use, or these facilities, services and transportation
networks are planned to be provided concurrently with the development of the property."
.
4-46
)
.
Applicant's Submittal:
'The property is fully served by urban services and adequate public facilities and transportation networks.
These are sufficient to support the proposed use, n
Staff's Response:
. Staff concurs with the applicant's statement. Criterion (c) is also addressed in staffs response to Goals
11 and 12,
Staff's Finding:
These applications comply with SDC 12,030(3)( c) because this subject property can be served by urban
services.
Section 12.030(3)(d) "Legislative Zoning Map amendments that involve a Metro Plan Diagram
amendment shall: 1. Meet the approval criteria specified in Article 7 of this Code; and 2. Comply
. with Oregon Administrative Rule (OAR) 660-012-0060, where applicable. II
Staff's Response and Finding:
These applications comply with SDC Section 12.030(3)( d) because this criterion is addressed in staffs
response to SDC Section 7.070(3) used in approving a Type II Metro Plan amendment; and the response
to State-wide Planning Goal 12 in SDC Section7,070(1).
. XI. CONCLUSION AND RECOMMENDATION OF STAFF
Conclusion: Staff has demonstrated that the proposed applications comply with the applicable criteria of
approval listed in SDC Sections 7.030,8.030 and 12.030, as conditioned:
Condition of Approval #1 :
Any future residential development on the Goodwill property shall be required to maintain a minimum
density of 12 dwelling units per acre.
Condition of Approval # 2
Submittal of a Trip Monitoring Plan (See Attachment 4). The signed plan shall be recorded at Lane
County at the property owner's expense,
Recommendation: Staff recommends the Planning Commission: Approve the attached Order and
forward the proposed applications, as may be amended, to the City Council with a recommendation for
adoption. .
.
4-47
/111.. I ,.
(.... " .;v'
I - if
u
"
BEFORE THE PLANNING COMMISSION
OF THE CITY OF SPRINGFIELD, OREGON
ORDER AND RECOMMENDATION FOR ]
A METRO PLAN DIAGRAM AMENDMENT ]
MID-SPRINGFIELD REFINEMENT PLAN ]
DIAGRAMITEXT AMENDMENT ]
AND A SPRINGFIELD ZONING MAP AMENDMENT]
.
CASE NUMBER LRP 2006-00013
CASE NUMBER LRP 2006-00014
CASE NUMBER ZON 2006-00020
RECOMMENDATION TO THE CITY COUNCIL
NATURE OF THE APPLICATIONS
This is a consolidated application for the above referenced case numbers. The subject property,
consisting of 5,32 acres is located on the west side of 30th Street, north of the Goodwill Industries Retail
Center, The Metro Plan Diagram Amendment proposes to change the current land use designation from
Heavy Industrial to Community Commerciallt;.lodal Development Area. The Mid-Springfield Refinement
Plan Diagram and Text Amendment proposes to change the current land use designation from Light-
Medium Industrial to Community Commercial/Nodal Development Area and amend the plan text to
implement TransPlan Nodal Development Area 9C and allow application of the /Nodal Development Area
designation and zoning overlay. The Springfield Zoning Map Amendment proposes to change the current
zoning from Light-Medium Industrial to Community Commercial/Nodal Development Overlay,
1. The above referenced applications have been accepted as complete,
2, The applications were initiated and submitted in accordance with Section 3.050 of the Springfield
Development Code, Timely and sufficient notice of the public hearing, pursuant to Section 14.030 of
the Springfield Development Code, has been provided.
.
3. On June 20, 2006 the Planning Commission held a public hearing on the proposed amendments.
The Development Services Department staff notes and recommendation together with the oral
testimony and written submittals of the persons testifying aUhat hearing have been considered and
are part of the record of this proceeding.
CONCLUSION
On the basis of this record, the proposed amendments are consistent with the criteria of SDC Sections
7.030,8.030 and 12,030, This general finding is supported by the spl3cific findings of fact and conclusion
in the Staff Report and Findings, .
ORDERlRECOMMENDA TION
It is ORDERED by the Springfield Planning Commission that approval of CASE NUMBER LRP 2006~
00013, CASE NUMBER LRP 2006-00014 and CASE NUMBER ZON2006-00020, be GRANTED and a
RECOMMENDATION for approval forwarded to the Springfield City Council.
/l/~ //"" ff
! /y ~'-
Plafinipg Commission Chairperson
ATTEST ::),.6
-Ce,' I!.
AYES: ~.
NOES: t
ABSENT: ~
ABSTAIN: 0
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2
4-48
.
.
.
I
EXHIBIT 1.
EXHIBIT2.
EXHIBIT 3.
EXHIBIT 4.
EXHIBIT 5.
ATTACHMENT 3
EXHIBITS SUBMITTED BY THE APPLICANT
PROPOSED NODAL DEVELOPMENT AREAS FROM TRANSPLAN
POTENTIAL ZONING
VACANT COMMERCIAL LAND TABLE FROM THE SPRINGFIELD COMMERCIAL
LANDS STUDY
TRIP GENERATION TABLES*
EXISTING ZONING
*The applicant revised the initial Traffic Study. The revised study has been incorporated into the
staff report under the response to State-wide Planning Goal 12, SDC Section 7.030(1). Therefore,
the original Traffic Study's Trip Generation Tables do not appear in Exhibit 4
4-49
EXHIBIT 4.
TRIP GENERATION TABLES*
Refer to the staff report under the response to State-wide PI~nning Goal 12, SDC Section 7.030(1).
4-50
,
.
.
.
.
.
.
"
ATTACHMENT 4
LEGAL DESCRIPTION FOR THE ZONING MAP AMENDMENT
Parcel 2 of Land Partition Plat Number 2005-P1922 dated October 19, 2005 as platted and recorded at
Lane County, Oregon C.S, File Number 39500.
4-51
-,
ATTACHMENT 5
TRIP MONITORING PLAN
.
GOODWILL INDUSTRIES'
METRO PLAN DIAGRAM AMENDMENT - CASE NUMBER LRP 2006-00013
MID-SPRINGFIELD REFINEMENT PLAN DIAGRAMITEXT AMENDMENT - CASE NUMBER LRP 2006-00014
SPRINGFIELD ZONING MAP AMENDMENT - CASE NUMBER ZON 2006-00020
TRIP MONITORING PLAN
BACKGROUND
The purpose of this Trip Monitoring Plan is to implement Condition of Approval # 2 of City of Springfield
Ordinances _' _ and _ adopted by the City of Springfield City Council on . ,2006.
Condition #2limits the number of auto trips generated by site development on the 5.32 acres of
Community Commercial/Nodal Development Overlay District-zoned land at the Goodwill site located on
the west side of 30th Street to no more than 3,664 Average Weekday.trips and 410 PM peak hour trips
(Le" a "Trip Cap"). In approving the above referenced Ordinances the Springfield City Council relied on
this Trip Cap to find that the requirements of OAR 660-12-0060 (TPR) would be met (Le., development
under changed zoning which would generate the same number (or fewer) trips as development allowed
under existing zoning would not "significantly affect an existing or planned transportation facility,")
This Trip Monitoring Plan establishes the procedures for applying the adopted "Trip Cap" in the context of
future development proposals on the subject site:
1. Subsequent Site Plan Review applications for sites within the 5.32 acres shall be in compliance with
the approved Trip Monitoring Plan.
2. Land use applications that wOl,lld increase the number of allowable Average Weekday trips or PM
peak hour trips above the limits specified in Condition 2 shall be processed as a refinement plan
amendment.
.
DEFINITIONS
Trip Monitoring Plan _ This document serves as the "Trip Monitoring Plan" required in Condition of
Approval # 2.
Traffic Impact Analysis (TIA) - The analysis prepared in support of the approved Plan ;:lmendments for
the subject property "Goal 12 Transportation Analysis, 30th Street Parcel" - Prepared for Karl Mueller,
Metro Planning May 10, 2006 was prepared by Access Engineering and signed by Michael Weishar, P.E.
Trip Generation Estimates Assumptions/Methods - For Purposes of demonstrating compliance with
the "Trip Cap", future trip generation estimates and calculation methods for developments on the subject
acres shall be in conformance with the current edition of the manual titled "Trip Generation" published by
the Institute of Transportation Engineers.
OBJECTIVES
1. . Demonstrate that future development on the subject property complies with Community Commercial
/Nodal Development Overlay District use restrictions and design requirements,
2. Describe methods bywhich subsequent Site Plan applications on the subject property will
demonstrate compliance with the conditioned Trip Cap.
TIAs shall be performed for each specific Site Plan or Site Plan Modification proposal submitted on the .
subject property. As part of these TIAs actual trip generation rates for developed Community Commercial
1
4-52
.
.
.
.
,
....
/Nodal Development Overlay District -zoned sites shall be assessed, Traffic counts shall betaken at
driveways to developed Community Commercial/Nodal Development Overlay District sites. Counted
traffic volumes shall be used to estimate the number of Average Weekday and PM peak hour trips being
generated by existing Community Commercial/Nodal Development Overlay District development. Pass-
by and internal trips shall be accounted for using origin and destination study methods approved by the
City of Springfield and ODOT. An Average Weekday and PM Peak-hour Trip Generation Estimate for the
proposed development shall be prepared in accordance with the above described "Assumptions." The
sum of existing Community Commercial/Nodal Development Overlay District trips and trips estimated to
result from proposed Community Commercial/Nodal Development Overlay District development shall be
limited to either 3,664 Average Weekday trips or 410 PM Peak-hour trips.
Property Owner Signature
Date
4-53
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/'v110-SPRINGF1ELO REFINEi\;\ENT PLAN
July 1986
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l
NEIGHBORHOODS
, ATTACHMENT
5-1