HomeMy WebLinkAboutOrdinance 6175 06/19/2006
t.
.
ORDINANCE NO.
6175
AN ORDINANCE REZONING 3.5 ACRES OF LAND FROM MEDIUM DENSITY
RESIDENTIAL TO MEDICAL SERVICES IN ACCORDANCE WITH THE METRO PLAN
DIAGRAM (LRP2006-00003).
WHEREAS,
The City Council of the City of Springfield finds that:
A. Article 12 of the Springfield Development Code sets forth criteria for amending the
Springfield Zoning Map; and
B. An application for a zone change (ZON2006-00003) was submitted on February 3,
2006 and was in conformance with the provisions of Section 3.050 ofthe
Springfield Development Code; and
C. Timely and sufficient notice of the public hearing, pursuant to Section 14.030 of the
Springfield Development Code was provided; and
D. On May 2,2006, a public hearing on the application was convened and concluded
before the Springfield Planning Commission;
.
E. The Springfield Planning voted four in favor, one opposed to forward a
recommendation of approval to the City Council; and
F.
June 5, 2006, a public hearing on the application was convened and concluded
before the Springfield City Council; and
The City Council voted to approve the ordinance and deellHing aH effi~; and
G.
H.
The Development Services staff notes, including criteria of approval, findings, and
recommendations, together with the testimony and submittals of those persons
testifying at the hearing or in writing, have been considered and are part of the
record of the proceeding; and
I.
Evidence exists within the record and the findings attached hereto that the proposal
meets the requirements of Article 12 of the Springfield Development Code.
NOW, THEREFORE, THE CITY OF SPRINGFIELD DOES ORDAIN AS FOLLOWS:
Section 1: The above findings (A through I), and the findings set forth in Exhibit
A attached hereto and incorporated herein by reference are hereby adopted in support of
the rezoning.
.
Page I of2
.
Section 2: The City of Springfield Zoning Map is hereby amended to change the
zone of the property described in Exhibit B ofthis ordinance from Medium Density
Residential to Medical Services subject to the following condition of approval:
Section 3: 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 portions of this Ordinance.
ADOPTED by the Common Council of the City of Springfield by a vote of ~
For and 0 against on this 19th day of June, 2006. (1 Absent -.... Fitch)
Attest:
CitYR~~
.
~REV/fWED&APPROVED
~ FO~'
DATE: ' __
LEGAL CO
SEL
.
Page 2 of2
ORDINANCE NO. 6175
.
.
.
Exhibit A
Zone Map Amendment Findings of Fact (ZON 2006-00003)
Approval Criteria .
. The following demonstrates conformance to applicable criteria for zone changes in SDC
12.030(3) and supports the requested zone change from MDR to Medical Services (MS).
12.030(3)(a)
Consistency with' 'applicable Metro Plan policies and the Metro Plan
diagram.
The City of Springfield City Council approved an amendment to the Metro Plan Diagram
on January 10,2005, which redesignated 43.9 acres ofland on the RiverBend site from
MDR to CC and 49.5 acres from MDR to MD. The City also concurrently approved
redesignation for this same acreage to CC and MU on the GRP Diagram. On March 21,
2005 concurrent with approval ofthe Qriginal RiverBend Master Plan, the City Council
approved zone changes corresponding to the areas redesignated, rezoning to Medical
Services (area designated CC) and Mixed Use Commercial (area designated MU).
The Applicant now seeks concurrent approvals to amend the RiverBend Master Plan,
redesignate 3.5 acres from MDR to CC, and rezone that same acreage to the Medical.
Services zoning district. Assuming Council approval of the redesignation of the subject
area to CC on the Metro Plan diagram, the proposed zone change is consistent with the
subject area's land use designations on the Metro Plan and Gateway Refinement Plan
diagrams. The proposal's consistency with applicable Metro Plan policies is outlined
below.
Plan Principles
Findings are made for the applicable polices and not the goals and objectives because the
policies embody the intent of the goals and objectives ofthe Plan. The policies serve as
the standard to evaluate planning proposals to ensure compliance the Plan.
B. Growth Management
Policy 1
The urban growth boundary and sequential development shall continue
to be implemented as an essential means to achieve compact urban
growth. The provision of all urban services shall be concentrated inside
the urban growth boundary. (pg. II-B-3)
Policy 9 A full range of key urban facilities and service shall be provided to
urban areas according to demonstrated need and budgetary priorities.
(Pg. II-B-4)
The subject area is located inside the Springfield UGB and within the city limits.
PeaceHealth through its annexation agreement with the City for the original RiverBend
site, as well as through annexation agreement inherited that governs the subject area, is
obligated to contribute a significant amount of money for off-site and on-site
improvements to ensure that adequate public services and facilities will be available to
Page I of 24
Exhibit A
serve future development. As identified in the concurrently submitted Master Plan
amendment and as required by the SDC, all required urban services will be provided
prior to development through the Site Plan Review/Modification process.
'.
Policy 24 To accomplish the fundamental principle of 'compact urban growth
addressed in the text and on the diagram, overall' metropolitan-wide
. density of new residential cQnstruction but not necessarily each project,
shall average six dwelling units per gross acre over the planning period.
(Pg. II-B-7)
Future residential construction proposed through the RiverBend Master Plan on the
portions of the site will remain within the density range allowed for the MDR zoning
district (i.e., greater than 10 dwelling units to 20 d.u. per gross acre). Portions of Tax Lot
100 not rezoned will retain MDR zoning and be subject to this same density range. The
proposed zone change promotes compact urban form by allowing a nominal area to be
included in the MS zone for the efficient design and construction of structured parking
and medical buildings needed to support the planned medical center, while still allowing
the opportunity for housing to be developed.
E. The Plan Diagram
2. Commercial
(b) Community Commercial Centers
"This categ01Y includes more commercial activities than neighboring
commercial, but less than major retail centers. Such areas usually
develop around small department store and supermarket. The
development occupies at least 5.0 acres and normally not more than 40
acres. This categ01Y contains such general activities as retail stores,
personal services, financial, insurance and real estate offices, private
recreational facilities, such as movie theaters and tourist related facilities
such as motels. When this catego1Jl is shown next to medium or high
density residential, the two can be integrated into a single overall
complex, local regulations permitting." (Pg. II-E-4)
.
SDC Article 22 establishes a relationship between MS zoning and the CC Plan
designation and sets locational criteria as to where the MS zone can be applied. Because
the MS district implements the CC designation and this district is expressly intended to
provide for development and expansion of hospitals and associated medical facilities, the
proposed zone change is consistent with the CC designation. Code also requires that
these facilities be developed comprehensively (e.g., through the master plan process);
therefore, the inclusion of the subject property in the RiverBend Master Plan is consistent
with the above language for including property in the CC designation and MS zoning
district.
An area is deemed suitable for hospital development through application of the MS
zoning district by conformance to locational provisions outlined in SDC22.010(3). The
additional 3.5 acres proposed for MS zoning abuts RiverBend Drive, which is classified
as a collector street and therefore consistent with this Code provision. The Code was
.
Page 2 of 24
Exhibit A
.
adopted by the City Council and acknowledge by DLCD as being in conformance with
the Metro Plan policies, statewide planning goals, and applicable statutes and
administrative rules. PeaceHealth's proposal retains MDR land use designation on the
subject tax lot outside of the 3.5-acres needed for parking facilities, with ample land
available to meet densities identified in the Residential Lands Study.
Therefore, the use of CC designated land for MS zoning complies with the above
provision in the Metro Plan.
Plan Elements
A. Residential Land Use and Housing Element
.
Policy A.1 Encourage the consolidation of residentially zoned parcels to facilitate
more options for development and redevelopment of such parcels. (Pg.
III-A-6)
The subject area proposed for rezoning is part of a larger 11.5-acre parcel that was not in
PeaceHealth's ownership when the RiverBend Master Plan was originally approved by
the City Council. The consolidation of property ownership allows the Applicant to bring
into the Master Plan a nominal area needed for efficient layout and development of
parking and medical office components needed for the medical center, while still
allowing for future development of residentially zoned areas at densities required by
Code and the Gateway Refinement Plan. .
Policy A.2 Residentially designated land within the UGB should be zoned
consistent with the Metro Plan and applicable plans and policies;
however, existing agricultural zoning may be continued within the area
between the city limits and the UGB until rezoned for urban uses. (Pg.
III-A-6)
Approving the requested zone change, along with the concurrent request for
redesignation on the Metro Plan and GRP diagrams, would leave the subject area zoned
consistent with its land use designation.
.
Policy A.3 Provide an adequate supply of buildable residential land within the UGB
for the 20-year planning period at the time of Periodic Review. (Pg. III-
A-6) .
The Eugene Springfield Metropolitan Area Residential Land and Housing Study Policy
Recommendation Report (RLS), dated August 1999, was prepared as a periodic review
task and acknowledge by DLCD. The report concluded that the area has a surplus of
3,646 MDR designated units through the planning horizon. There is approximately 828
acres ofMDR designated land with a demand of589 acres, leaving a surplus of239
acres. Prior zone change approvals (for 43.1 acres from MDR to MUC and 43.9 acres
from MDR to MS) at RiverBend left a surplus of approximately 1,584 MDR designated
units and 152 acres through the planning horizon (the surplus of housing is based on a
ratio of 16 units per flat buildable acre, which is consistent with the ratio used in the
. RLS).
Page 3 of 24
Exhibit A
In addition, the surplus identified. in the RLS does not include any density allocations to
land in Springfield that may be developed subject to provisions of SDC Article 27
(Floodplain Development Overlay Zone). Nor does it account for potential housing in
other land use designations and/or in nodal development areas. Nor did the RLS include
approximately 20 acres ofland owned by PeaceHealth in Eugene zoned R-2,_ but
designated High Density Residential (this oversight has been acknowledged by Lane
Council of Governments and submitted into the record during the public hearing process
for the prior adopted Metro Plan and Refinement Plan amendments.). If this additional
area not included in the RLS were factored in to the supply calculation, then the existing
surplus of needed residential housing would.be higher still. Consequently, the zone map
amendment, being consistent with the Metro Plan and GRP, will not affect the City's
ability to provide an adequate supply of housing.
.
Policy A.8 Require development to pay the cost, as determined by the local
jurisdiction, of extending public services and infrastructure. The cities
shall examine ways to provide subsidies or incentives for providing
infrastructure that support affordable housing and/or higher density
. housing. (Pg. III-A-6)
Through its annexation agreement with the City for the 160-acre RiverBend site,
PeaceHealth is obligated to contribute a significant amount of money for off-site and on-
site improvements (e.g., nearly $2 million worth of right-of-way through the site for the
MLK Parkway extension, $2.75 million toward MLK road construction, and $600,000
toward the construction of a sanitary sewer trunk line within the MLK right-of-way).
Additional cost burdens are ascribed through the annexation agreement for the Il.5-acre
parent parcel to the area subject to this zone change request. The extension of utilities
and other costs borne by the Applicant to serve future development as required under
these agreements demonstrates compliance with the above policy.
.
Policy A.II Generally locate higher density residential development near
employment of commercial services in proximity to major transportation
systems or within transportation-efficient nodes. (Pg. III-A-8)
Approval of the proposed zone change will allow for efficient development ofthe
medical center as an employment hub integrated with other commercial services and
transit-supported developments along the extended RiverBend Drive, while retaining
higher density residential opportunities on the remaining MDR-zoned portions of the site,
consistent with this policy.
Policy A.12 Coordinate higher density residential development with the provision of
adequate infrastructure and services, open space, and other urban
amenities. (Pg. III-A-8)
The area proposed for rezoning was annexed into the City of Springfield. The annexation
agreement governing the site and the inclusion of the area subject to zone change into the
RiverBend Master Plan (as well as requirement that the remainder ofthe affected tax lot
outside of the proposed rezone be master planned) ensures that adequate level of
. infrastructure and services needed to serve future development will be provided. The
concurrently proposed amendment to the RiverBend Master Plan calls for extension of
.
Page 4 of 24
Exhibit A
.
roadways needed to serve the proposed medical center. Utilities needed to serve the
subject area are provided as identified on the amended Master Plan. The proposed zone
change still allows for open space and public access to the McKenzie River as approved
in the Master Plan, consistent with the above policy and GRP Implementation Action
13.4.
Policy A.13 Increase overall residential density in the metropolitan area by creating
more opportunity for effectively designed in-fill, redevelopment, and
mixed use while considering impacts of increased residential density on
historic, existing andfuture neighborhoods. (pg. III-A-8)
The proposed change of zone creates an opportunity for more efficiently and effectively
designing a suitable mix of uses on the RiverBend campus by allowing for more
. concentrated medical center development and use of structured parking, particularly
within the area subject to rezoning. The zone change does not eliminate the ability to
otherwise provide for a robust mix of uses (i.e., medical, office, residential and
appropriately scaled commercial retail use) that will serve existing and future
neighborhoods in the Gateway area.
.
Policy A.22 Expand opportunities for a mix of uses in newly developing areas and
existing neighborhoods through local zoning and development
regulations. (Pg. III-A-10)
This zone change will allow a properly designed mix of uses on the entire RiverBend
campus, while effectively providing space for structured parking needed by the medical
center. Even with the proposed rezoning, the amended RiverBend Master Plan retains
suitable acreage for a mix of uses that are not otherwise permitted under solely MDR
zomng.
B. Economic Element
I
Policy 1 Demonstrate a positive interest in existing and new industries, especially
those providing above average wage and salary levels, an increased in
variety of job opportunities, a rise in the standard of living, and
utilization of our existing comparative advantage in the level of
education and skill of the resident labor force.
Approving MS zoning for the nominal area proposed demonstrates support for the
medical center under construction, as well as other uses allowed through the RiverBend
Master Plan. Planned medical uses provide above average wage and salary levels and
increase job opportunities not only in the Gateway area, but also to all of the Eugene-
Springfield metropolitan area and beyond. This strengthens the region's competitive
advantage with state-of-the-art healthcare facilities, provides considerable economic
benefit to the local labor pool, and leverages local skills and educational offerings.
.
Policy 3 Encourage local residents to develop job skills and other educational
attributes that will enable them to fill existing job opportunities.
The development enabled by the requested zone change will provide needed support
facilities to the medical center, which will in turn improve and diversify the metropolitan
Page 5 of 24
Exhibit A
area economy by providing a mix of uses and various employment opportunities. The
development will directly employ the resident labor force in a variety of skilled, semi-
skilled, and unskilled positions, through the construction phase and subsequently
throughout the life of the planned medical center.
.
Policy 6 Increase the amount of undeveloped land zoned for light industrial uses
and commercial uses correlating the effective supply in terms of
suitability and availability with the projections of demand.
The proposed zone change would add 3.5 acres to the inventory of needed commercial
lands identified in the City's adopted Commercial Lands Study. Insofar as the SCLS
identified a deficit of commercially zoned land, approval of the requested zone change
would help reduce that deficit. .
Policy 11 Encourage economic activities, which strengthen the metropolitan
area's position as a regional distribution, trade, health and service
center.
This zone change is consistent with the above policy by helping achieve PeaceHealth's
master planning objectives and thereby furthering Springfield's contribution to the
region's healthcare service delivery system. The approval demonstrates positive interest
in expanding employment in the existing local medical services industry, which tends to
offer higher employment income. SHMC is the regional medical center for a multi-
county region, but the Hilyard site cannot accommodate existing demands much less
growth needs and the needs.of expanding medical technologies. The dual campus
concept and development of a new acute care hospital and trauma center at RiverBend
strengthens the metropolitan area's position as the center of the region's health care
service delivery system.
.
Policy 22 Review local ordinances and revise them to promote greater flexibility
for promoting appropriate commercial development in residential
neighborhoods.
This zone change request is made iri direct compliance with Policy 22 and is made for the
purpose outlined above. The change ofMDR to MS will allow for flexibility in
arranging needed medical office buildings and parking facilities, including structured
parking in the area proposed for rezoning, and thereby supporting appropriate medical
and mixed use commercial uses outlined in the RiverBend Master Plan that will serve
existing and future residential neighborhoods. In addition, SDC 22.010(3) requires the
MS district be applied on sites that have access to a collector or arteriaI' street where
Community Commercial, Major Retail Commercial, or Mixed Use Metro Plan
designations exist. The MS District through the provisions of SDC is appropriate for the
CC designation. The CC designation also allows for integration with MDR "into a single
overall complex", thereby allowing uses permitted in the MS zoning district to be
appropriately mixed with residential neighborhoods, also integrating the mix of uses
allowed in the MUC zone into a single master planned development area.
.
Page 6 of 24
Exhibit A
.
C. Environmental Resources Element
.
Policy 1 Springfield, Lane County and Eugene shall consider downstream
impacts when planning for urbanization, flood control, urban storm
water runoff, recreation, and water quality along the Willamette and
McKenzie Rivers.
The City's urbanization, flood control, storm water, recreation and water quality
provisions referenced by this policy are implemented through the City's various
standards in the.SDC. Consequently, when development of the site is proposed, all such
development must comply with the SDC provisions implementing the referenced
elements. However, it should be noted that the annexation agreement for the subject site
and for the original Master Plan area obligates PeaceHealth to develop in accordance
with state-of-the-art storm water quality measures to protect surface and groundwater
quality by adequately managing and treating storm water runoff from the development
site. PeaceHealth has prepared a stonn water management plan, which includes all the
Best Management Practices and requirements of the City to ensure water quality is
preserved. PeaceHealth will comply with all applicable policies and regulations in the
SDC that address water quality and uses along McKenzie River.
Policy 2 Except as . otherwise allowed according to FEMA regulations,
development shall be prohibited in floodways if it could result in an
increased flood leveL The floodway is the channel of a river or other
watercourse and the adjacent land area that must be reserved to
discharge a one-percent-chance flood in any given year
No portion of the area subject to the proposed rezone is located within the FEMA
floodway. While Policy 2 is not relevant to the proposal, the RiverBend Master Plan has
previously demonstrated compliance with the above policy by not locating any
development within the floodway other than portions of a required multi.;.use riverside
trai 1.
Policy 20 Positive steps shall be taken to proteCt the Springfield municipal
groundwater supplies along the McKenzie River and the middle fork of
the Willamette Riv(!r.
Because the subject area is within the 2-5 year TOTZ for the Springfield Utility Board's
Sports Way wellfield, future development within the proposed rezone area will be
required to demonstrate consistency with applicable standards in SDC Article 17.
.
Policy 24 When planning for and regulating development, local governments shall
consider the needfor protection of open spaces, including those
characterized by significant vegetation and wildlife. Means of protecting
open space include but are not limited to outright acquisition,
conservation easements, planned unit development ordinances,
streamside protection ordinances, open space tax deferrals, donations to
the public, and performance zoning. "(pg. III-C-I 0)
The City's approval of the original RiverBend Master Plan took into account
conservation of open spaces, particularly areas of significant vegetation and wildlife
Page 7 of 24
Exhibit A
value - such as the Douglas fir grove identified on the City's Goal 5 inventory and the
McKenzie River riparian area. However, the proposed zone change and concurrently
submitted amendments to the RiverBend Master Plan have no affect on any of these
significant vegetation or open space areas, or on previously approved plans to conserve
and enhance these areas.
.
The area proposed for rezoning includes a remnant filbert orchard. Nuts are harvested
from this orchard, but given its small size, isolated location, potential for contraCtion of
Eastern filbert blight, it does not have long-term viability as a commercial orchard and
minimal value as an open space buffer or amenity. Therefore, although the Gateway
Refinement Plan's Natural Assets policy (GRP Policy 8.3) calls for the City to
"encourage" retention of such orchards as open space amenities, this small remnant
orchard may ultimately be removed to accommodate the needed Medical Services uses
allowed under the proposed zone change.
Because the proposal does not affect any Goal 5 resources or areas identified as Natural
Assets in the GRP, the requested zone change does not affect compliance with the above
Metro Plan policy, the GRP, or obligations in PeaceHealth's annexation agreement with
the City to protect and enhance the river's riparian corridor.
D. Willamette Greenway, River Corridors, and Waterway Element
Policy 2 Land use regulations and acquisition programs along river corridors
and waterways shall take into account all the concerns and needs of the
community; including recreation, resource and wildlife protection;
enhancement of river corridor and waterway environments; potential for
supporting nonautomobile transportation; opportunities for residential
development; and other compatible uses.
Because the proposed zone change is distant from river corridors and waterways and does
not affect plans to protect and enhance the riverfront included in the prior approved
Master Plan, the proposed zone change does not change any of the regulations that
implement the Metro Plan or GRP, or affect the RiverBend project's compliance with the
above policy.
.
Policy 5 New development that locates along river corridors and waterways shall
be limited to uses that area compatible with natural, scenic and
environmental qualities of those water features." (pg. In - 0-4)
The area subject to the proposed rezone is not located along river corridors or waterways,
so the above policy is not applicable to the requested zone change. Moreover, any
development as a result of this application will proceed through a thorough site plan
review process to determine issues such as compatibility and protection of environmental
qualities.
.
Page 8 of24
Exhibit A
.
E. Environmental Design Element
Policy 1 In order to promote the greatest possible degree of diversity, a broad
variety of commercial, residential, and recreational land uses shall be
encouraged when consistent with other planning policies. (pg. III-E-3)
The zone change increases a nominal amount of MS-zoned area that will be incorporated
into the RiverBend Master Plan. Insofar as City previously approved the Master Plan,
which includes a variety of commercial, residential and other land uses and was
demonstrated to be consistent with the above and other planning policies, the proposed
rezone does not affect that previously established confonnance with applicable policies.
F. Transportation Element
Land Use Policies
.
Policy 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. (pg. III-F-4)
Although the City did not apply the Nodal Development land use designation to the
RiverBend site, the mix of uses and other provisions approved in the RiverBend Master
Plan are consistent with the nodal development strategy. The request to include an
additional 3.5-acres in the MS-zoned portion of the Master Plan area facilitates the
development of structured parking, and a more transportation-efficient land use pattern as
called for in the above policy.
Policy F.3 Provide for transit-supportive land use patterns and development,
including higher intensity, transit-oriented development along major
transit corridors and near transit stations; medium and high density
residential development within ~ mile of transit stations; major transit
corridors, employment centers, and downtown areas; and development
and redevelopment is designated areas that are or could be well served
by existing or planned transit. (Pg.III-F-5)
Policy FA Require improvements that encourage transit, bicycle, and pedestrian in
new commercial, public, mixed use, and multi unit residential. (Pg. III-
F-5)
The proposed zone change and concurrent amendments to the approved RiverBend
Master Plan enable the development oftransit-supportive land use patterns and
development by establishing RiverBend Drive as a major transit corridor, with a mix of
intensiv~ uses at transit-supportive densities on the site and within a ~-mile of planned
transit stations, consistent with the above policies.
.
Transportation Demand Management (TDM) Policies
The TDM policies outline on page III-F-6 of the Metro Plan are in place to create a
management and implementation system for the Metro area that reduces the reliance on
the automobile and the need for capital expenditure on transportation systems and to
Page 9 of 24
Exhibit A
reduce the strain on road capacity. Developing nodal development areas throughout the
Metro area is one of the approaches of supporting TDM policies and implementation
goals. The subject site is located within potential nodal development area 7B in
TransPlan. GRPlmplementation Action 13.6 requires identification of nodal
development areas as part ofthe master plan process, if adopted prior to the City's own
process for assessing and implementing nodal development, to ensure requirements of
nodal development as outlined in the Metro Plan are satisfied. PeaceHealth has identified
in the approved RiverBend Master Plan the ability to comply with nodal development
objectives. The Master Plan also includes a comprehensive TDM Plan intended to extend
PeaceHealth's aggressive TDM program to the RiverBend campus.
.
The proposed zone change enhances the ability for the Master Plan to effectively
incorporate structured parking and a more efficient arrangement of planned medical uses
integrated with a mix of other uses and transportation systems serving all modes of travel,
and is therefore consistent with these policies. Specific issues of transportation
connectivity and modes of traffic movement are germane to the review process for the
concurrently submitted MasterPlan amendment.
G. Public Facilities and Service Element
Policy G.1 Extend the minimum level and full range of key urban facilities and
services in an orderly and efficient manner consistent with the growth
management policies in Chapter II-B, relevant policies in this chapter,
and other Metro Plan policies.
. The subject area is located in Springfield's UGB. PeaceHealth, through its annexation
agreement, is obligated to contribute a significant amount of money for off-site and on-
site improvements consistent with the Metro Plan. The approved RiverBend Master Plan
otherwise established how urban services would be established and extended to serve
proposed development. The concurrently submitted Master Plan and proposed zone
change does not affect the ability to provide needed services, and all the required urban
services shall be provided prior to or at the time of development as required through the
Site Plan Review process.
.
The remaining policies outlined under the Public Facilities and Service Element pertain
to locating utilities (e.g., storm water lines, wastewater lines), modification to projects
listed in the Public Facilities Services Plan, administrative guidelines to plan for large
facilities (e.g., hospitals), and services development within the urban growth boundary.
These policies are more germane to, and were met through the review of the previously
approved master plan. Although the amended Master Plan under concurrent review with
this rezone request modifies the location of certain utilities, neither the Master Plan
amendments nor the proposed zone change affect compliance with the above policy.
H. Parks and Recreation Facilities Element
Nothing in this application is in conflict with any aspect or policy of the Parks and .
Recreation Facilities Element.
.
Page 10 of 24
Exhibit A
.
I. Historic Preservation Element
Policy 1 Adopt and implement historic preservation policies, regulations and
incentive programs that encourage the inventory, preservation, and
restoration of structures; landmarks; sites; and areas of cultural,
historic, or archeological significance, consistent with overall policies
(pg 1II-I-2)
This policy is directed at the obligation ofthe City, rather than individual applicants.
However, cultural and archaeological investigations of the subject site by qualified
professionals did not identify any significant Goal 5 historic resources, or structures or
sites inventoried by the City of Springfield.
J. Energy Element
Nothing in this application is in conflict with any aspect or policy of the Energy Element.
.
SDC 12.030(3)(b)
Consistency with applicable Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans.
On January 10, 2005, the City of Springfield City Council approved amendments to the
Gateway Refinement Plan (GRP) diagram and text (and Metro Plan diagram), and to the
text of the Springfield Commercial Lands Study, pertaining to portions ofthe 158-acre
RiverBend Master Plan area. Consistent with applicable GRP policies, the plan diagram
amendment allowed for rezoning of up to 49.5 acres on the Mixed Use designated portion
of the site to Mixed Use Commercial, and rezoning-of 43.9 acres on the Community
Commercial (CC)- designated part of the site to Medical Services (MS). On March 21,
2005, the City Council approved the implementation of applicable GRP policies and
implementation actions by rezoning 43.1 acres to MUC and 43.9 acres to MS, consistent
with the GRP diagram and text (and Metro. Plan diagram). .
The proposed zone change for 3.5 acres to MS is consistent with the GRP designation for
this same acreage, presuming City Council approval of the concurrently submitted
application to amend the Metro Plan and GRP diagrams for this acreage to CC.
.
Page 11 of24
Exhibit A
Gateway Refinement Plan
.
Residential Element
Policy 12.0. Allow rezoning of land within the "McKenzie-Gateway MDR site" to
Medical Services ("MS'') on land designated Community Commercial or
Mixed Use on the Metro Plan diagram, and rezoning to Mixed Use
Commercial (MUC) on land designated Mixed Use on the Metro Plan
diagram as implemented during Master Plan and/or during City's nodal
implementation project.
This policy specifically allows medical services uses and MS zoning on land designated
CC. Approval of the requested zone change and concurrently submitted Plan diagram
Master Plan amendments implements the above policy by applying the MS zone
consistent with this policy.
Implementation Action 12.1 Redesignation of a total of 99 acres of land within
the McKenzie/Gateway MDR site to Community
Commercial and/or Mixed Use through the Metro Plan
amendment process shall be allowed and shall be
implemented by application of Mixed Use Commercial
("MUC'') or Medical Services ("MS'') zoning district
through the Master Plan approval and/or during the
City's nodal implementation process.
Approval of the requested rezone of3.5-acres to Medical Services, combined with the
other MS-zoned acreage on-site, results in a total of 47.4 acres ofMS-zoned area within
the McKenzie/Gateway MDR site. Adding the 43.1 acres ofMUC-zoned acreage, the
non-residentially zoned acreage on the amended RiverBend. Master Plan area totals 90.5
acres, consistent with the limitation in the above policy.
.
Implementation Action 12.4 In addition to all applicable standards and
provisions regulating development in Springfield, any
development adjacent to McKenzie River or McKenzie
River riparian setback shall provide public access to
McKenzie River or McKenzie River riparian setback.
Surface parking areas shall not be visible from the
McKenzie River corridor and shall be screenedfrom
public streets. "
PeaceHealth's previously approved MasterPlan demonstrated compliance with the above
action by providing access to the river through an on-site trail system that will connect to
on-street bike and pedestrian ways. The requested zone change and concurrent Master
Plan amendment do not affect the prior approved Plan's conformance to the above policy.
.
Page 120f24
Exhibit A
.
Implementation Action 12.6 Within the city limits at the McKenzie-Gateway
MDR Site, the Medical Services ("MS'') zoning district
shall implement the Community Commercial designation
if part of an approved Master Plan for development of a
major med~cal facility. The adopted Master Plan shall
demonstrate that the subject property will be able to
accommodate the number of housing units within the
range for the MDR land use designation in the Metro
Plan and Gateway Refinement Plan. In addition to
meeting the standards of the SDC, at the time of master
plan approval, the City Council may attach specific
conditions on all development within the MS or MUC
zones including but not limited to building height and
setbacks.
The area proposed for rezoning is within the City limits and is being included in the
RiverBend Master Plan and CC land use designation, as identified in the concurrently
submitted Master Plan amendment and Plan diagram amendment.. Approval of the
proposed zone change still allows for development of a suitable number of housing units
at required MDR densities, as established in the original Master Plan approval.
Commercial Element.
.
Policy 5 Provide for future appropriately planned Mixed Use, Community
Commercial and nodal development designated areas east of Game
Farm Road, within the City Limits at the McKenzie-Gateway MDR site
as identified in TransPlan as potential nodal development sites. "
Consistent with the above policy, the proposed MS zoning will implement the
Community Commercial designation requested concurrently for the same subject 3.5
acres, which is located east of Game Farm Road and within the Springfield city limits in
the McKenzie-Gateway MDR site.
.
Implementation Action 5.1 Rezoning of land within the city limits at the McKenzie-
Gateway MDR site to Mixed Use Commercial ("MUC'')
and Medical Services ("MS'') shall be allowed to
implement the Mixed use and/or Community Commercial
plan designations. Zone changes shall demonstrate the
ability to meet the demand for commercial lands identified
in the Springfield Commercial Lands Study (SCLS) policy
I-B. Commercial uses allowed in zoning districts
pursuant to GRP Policy 5.0 above shall be subject to
Master Plan approval and shall be planned in a manner
to minimize traffic, noise, and lighting. conflicts with
adjacent residential uses.
The adopted SCLS identified a deficit of at least 158 acres of commercial lands needed to
meet demand through the year 2015. Prior approval of redesignation and rezoning at the
Page 13 of24
Exhibit A
RiverBend site reduced, but did not eliminate that deficit. SCLS Policy I-B allowed for
the designation of "up to 99 acres of Community Commercial and Mixed Use in the
McKenzie-Gateway Subarea within the City of Springfield to accommodate a transit
supported mix of uses including residential, commercial and regional health service
uses." Approval of the requested rezoning for 3.5 acres within the City limits in the
McKenzie-Gateway subarea, concurrently with the requested redesignation for this same
acreage and amendment to the RiverBend Master Plan, is consistent with the above GRP
policy and SCLS policy. The combined acreage redesignated and rezoned on the
RiverBend site remains less than 99 acres, yet will help further reduce the City's deficit
of needed commercial lands. Approval of the proposed zone change will also support the
development of a mix of uses on the RiverBend campus, including regional health center
uses, as part of an approved MasterPlan, also consistent with applicable GRP and SCLS
policies.
.
Industrial Element
Nothing in this application is in conflict with any aspect or policy of the Industrial
Element.
Natural Assets, Open Space/Scenic Areas and Recreation Element
The approved RiverBend Master Plan is predicated on the establishing a healing and
wellness community, and not solely the development of a hospital building. Even though
there are no Natural Assets identified in the GRP located on the proposed zone change
area, incorporation ofthis 3.5 acres into the RiverBend Master Plan along with other
amendments to the Master Plan submitted concurrently does not alter the prior approved
Master Plan's consistency with the GRP's Natural Assets Element.
.
Historic Resources Element
Because there are no historic resources on the area subject to the proposed rezone as
inventoried in the GRP or listed as significant Goal 5 historic resources, this section of
the GRP is not relevant to the proposal. ;
Transportation Element
Approval of the RiverBend Master Plan and associated Traffic Impact Analysis
demonstrated the project's consistency and planned future uses with goals and policies in
the GRP Transportation Element. Consistent with the originally approved Master Plan
and as required by the City (i.e, Conditions of Approval #34 and 35), the concurrently
submitted Master Plan amendment includes extensions and an intersection of RiverBend
Drive and St. Joseph Place. The 3.5-acre area proposed for rezoning is east of the
RiverBend Drive extension and, as demonstrated in the amended Master Plan, the
proposed parking facilities on the rezoned area do not result in any greater traffic impact
than had been projected in the original Master Plan or additional trips beyond that
allowed for Phase 1 development in the established trip cap. Therefore, the requested
zone change is consistent with the GRP's Transportation Element goals and policies.
.
Page 14 of24
Exhibit A
.
Specific implementation ofthese policies through planned transportation improvements
is reflected in the Master Plan amendment submittal.
Public Facilities Element
PeaceHealth's annexation agreement and SDC provisions require the development of all
necessary public infrastructure to support future development, which is assessed through
the required master plan process -in this case review of the proposed Master Plan
amendment. Nothing in this zone change application conflicts with any aspect, policy or
implementation action of the Public Facilities Element in the GRP.
TransPlan
The proposed zone change occurs in an area identified in the Trans Plan as Nodal
Development Area 7B. The requested zone change from MDR to MS will enable
PeaceHealth to proceed with implementation of the required Master Plan through an
amendment to allow the efficient development of structured parking for the approved
medical center. Consistent with the applicable goals and objectives of TransPlan, the
proposed zone change, and amended Master Plan, reflect the continued provision of a
mix ofland uses, mass transit service, multi-modal transportation facilities, safe and
efficient use of existing and proposed infrastructure, accessibility for the alter-abled,
maintenance of established levels of service, and protection of the environment.
.
The area proposed for rezoning abuts an extension of RiverBend Drive, which is
programmed for extension in TransPlan (Project #756), identified in the GRP, and
required by PeaceHealth's annexation agreement with the City and in the original Master
Plan approval (Conditions #34 and 35). The required extension ofthis roadway abutting
the proposed rezone area is illustrated in the amended RiverBend Master Plan.
Springfield Commercial Lands Study
LCDC acknowledged the Springfield Commercial Lands Study (SCLS) as the City's
adopted plan demonstrating compliance with Statewide Planning Goal 9 (Economic
Development). Table 3-8 on page 32 of the SCLS shows a deficit of 158 acres between
the supply and demand for commercial land through the year 2015 planning horizon.
Earlier approved zone changes on the RiverBend site reduced, but did not eliminate this
deficit. Approval of the requested zone change will further reduce the identified deficit
of needed commercial lands, and support the planned medical center consistent with
other SCLS policies, and therefore Statewide Planning Goal 9, as outlined below.
.
Policy I-A Maintain a mixed supply of large and small commercial sites through
strategies such as rezoning or annexation to serve Springfield's future
population. (CLS, pg. 34)
The purpose of this application is to rezone 3.5 acres from MDR to MS, and add this
same acreage to the RiverBend Master Plan and subdivision Lot 8, which includes the
medical center under construction. Approval of the requested rezone would allow for
efficient layout of medical buildings and structured parking on Lot 8, thereby creating a
Page 15 of24
Exhibit A
suitably sized and configured site to accommodate the medical center on a lot zoned MS
and designated Community Commercial (presuming approval of the concurrently
submitted Metro Plan and GRP diagram amendments) consistent with the above policy.
.
Policy I-B Ensure that an adequate amount of commercial land is designated in
undeveloped identified nodes such as JasperlNatron and McKenzie/
Gateway to accommodate a portion of the demand for commercial
acreage, and to implement the policies and objectives of the TransPlan.
(CLS, pg. 34)
Approval of the requested zone change, though only for 3.5 acres, will ensure that an
adequate amount of commercially designated (and MS-zoned) iand is available for
efficient layout of medical office buildings and parking structures integral to the planned
medical center. Consistent with the above SCLS policy and TransPlan policies, the
rezone will support the mix of uses, including medical services, contained in the
RiverBend Master Plan and required by earlier City Council Plan amendment approvals.
. Policy 3-A Redesignate and rezone portions of industrial land or residential land
within identified Employment Centers, Neighborhood Center,
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." (CLS, pg. 34)
PeaceHealth's proposal, which would result in rezoning of only 3.5 acres from MDR tp
MS, yet will help provided space needed for structure parking to serve the planned
medical center. The medical center will provide an employment center that supports and
is complementary with residential and other mixed commercial uses on the RiverBend
campus, consistent with the above policy.-
.
Implementation Strategy 1-B(2) Consistent with the Gateway Refinement Plan and
Metro Plan, designate up to 99 acres of Community
Commercial and Mixed Use within the city limits at the
McKenzie-Gateway MDR Subarea to accommodate a
transit supported mix of uses including residential,
commercial, employment and major health services
uses.
This application is consistent with the above by allowing a minor addition of3.5 acres
already in the Springfield city limits to the MS zone to accommodate parking facilities
needed for the planned medical center. The concurrently submitted application to
redesignate this same 3.5 acres to Community Commercial on the Metro Plan and GRP
diagrams will result in less than 99 acres designated CC or MU, and a total of only 90.5
acres zoned MS or MUC in the GRP's McKenzie-Gateway Subarea. The requested zone
change facilitates medical center development, while still allowing for other medical and
general office uses, small-scale commercial retail and support services, and residential
uses outlined in the approved RiverBend Master Plan in a manner that efficiently utilizes
nodal development strategies and is compatible with surrounding land uses.
.
Page 16 of24
Exhibit A
.
Implementation Strategy 3A(1) Evaluate inventories based on demonstrated need
for planning period. Initiate rezoning or resignation of
surplus land uses where appropriate for commercial,
consistent with the Metro Plan. (CLS, pg. 36)
The Eugene-Springfield Residential Land Study concluded that the metropolitan area has
a surplus of3,646 MDR-designated units through the planning horizon. The request to
change 3.5 acres ofMDR toMS will still leave a surplus of residential dwelling units and
acreage of available MDR land. Moreover, consistent with GRP policies (i.e.,
Residential Element Implementation Action 12.6) the approved RiverBend Master Plan
was required to demonstrate that an adequate number of dwelling units will be provided
to support MDR densities projected for the site in the metropolitan Residential Lands
Study. Approval ofthe requested zone change of only 3.5 acres retains the existing
surplus in the housing inventory, and the proposed amendments to the RiverBend Master
Plan do not affect continued compliance with the above SCLS implementation strategy.
Rather, consistent with the above policy, the rezoning would reduce the existing
commercial lands deficit identified in the SCLS.
.
Springfield Development Code
This application has been made in accordance with SDC Article 12, which governs the
procedures and requirements for zoning district changes. Future development proposed
as a result of this application will be consistent with Articles 22: Medical Services
District, Article 27 Floodplain Development Overlay Zone, Article 37: Master Plans, and
Article 17: Drinking Water Overlay Zone.
Article 22: Medical Services District
The Medical Services District is designed to provide for hospital development and
associated facilities. The proposed zone change will enable the efficient layout and
development of parking and medical office facilities integral to the planned medical
center, as illustrated on the concurrently submitted Master Plan amendment. SDC
22.010(3) outlines locational criteria as to where the MS zoning district can be applied.
This code citation allows the MS district to be applied to sites on collector or arterial
streets where Community Commercial, Major Retail Commercial, Mixed Use, Medium
Density Residential or l-:Iigh Density Residential Metro Plan designations exist. As
required by these locational standards, the proposed zone change will add 3.5 acres to the
MS district in an area concurrently redesignated with the CC Plan designation. The
subject area has frontage onto a collector street (the required extension of Ri verB end
Drive).
Code requires MS zoning to be applied to sites of three or more acres, and by including
the 3.5 acres proposed for rezoning with the larger MS-zoned Lot 8 in the RiverBend
Master Plan, this minimum site size requirement will be greatly exceeded. GRP text
amendments previously adopted by the City acknowledge that the MS district is
appropriate in the McKenzie-Gateway MDR site.
.
Page 17 of24
Exhibit A
Article 27: Floodplairi Development Overlay Zone
PeaceHealth completed analysis of pre-development and post-development conditions in
the RiverBend area, and were required through the prior approved Master Plan to use a
"worst case" of either the Corrected Effective Model floodplain elevations developed by
PeaceHealth's consultants, or the established FEMA floodplain elevations when
determining the applicability of SDC Article 27. Because a portion of the area proposed
for rezoning is within this "flood hazard boundary," future development will be required
to comply with requirements in Article 27.
.
Article 37: Master Plans
The purpose of a master plan is to provide preliminary approval for an entire
development area in relation to land uses, range of minimum to maximum potential
intensities and densities, arrangement of uses, and the location of public facilities and
transportation systel,TIs. In addition, it is to assure individual phases of a development
will be coordinated. The proposed zone change incorporates the subject 3.5 acres into the
amended RiverBend Master Plan to ensure the proposed uses in the MS zone are
compatible with other surrounding uses and meet other requirements of Article 37, as
illustrated in the concurrently submitted Master Plan amendment application.
Article 17: Drinking Water Protection Overlay Zone
The primary objective of the DWP overlay zone'is to ensure protection of groundwater
resources~ Because the subject area is within the 2-5 year Time of Travel Zone for the
Springfield Utility Board's Sports Way wellfield, future development will have to submit
application demonstrating conformance to the applicable standards in SDC Article 17.
.
SDC 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.
PeaceHealth was obligated by its annexation agreement with the City (dated 5/29/02) to
provide a significant amount of on-site and off-site improvements that support any future
development plans for the original 160-acre Master Plan area, and to prepare a master
plan for the entire RiverBend site then owned by PeaceHealth. The annexation
agreement for property including the subject area (dated 7/1/02) included similar
provisions for on-site and off-site improvements to support future development and also
required that the property be included in a Master Plan pursuant to SDC Article 37, either
as "a component of Peace Health's Master Plan or a separate" master planning effort
(Section 1.1A, pg. 2).
The 3.5-acre area subject to rezoning will be incorporated into the amended Master Plan
area, and the subject area will be served with transportation access via the proposed (and
required) extensions of St. Joseph Place and RiverBend Drive. Other utilities as may be
necessary to serve the subject area can be extended from the south.
.
Page 18 of24
Exhibit A
.
SDC 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.
The proposed 3.5-acre zone change is submitted concurrently with a quasi-judicial
amendment to the Metro Plan and GRP diagrams. Findings demonstrating that the
proposed rezoning of the subject 3.5 acres is consistent with the requirements of SDC
. Article 7 (Metro Plan Amendments), and with the specific approval criteria in SDC
7.070(3) - i.e., consistency with applicable statewide planning goals - are outlined below.
Findings demonstrating the requested zone change's consistency with the state
Transportation Planning Rule (OAR 660-012-0060, as amended by LCDC) are outlined
below under the heading of Goal 12 (Transportation).
.
4.3.1 Consistency with Statewide. Planning Goals
SDC 7.030(3)(a) and ORS 197.625(3)(b) require that land use decisions such as the
proposed zone map amendment include findings addressing goals applicable to the
concurrently submitted Plan diagram amendments. The City previously determined that
the earlier Plan amendments and zone changes supporting the approved RiverBend
Master Plan complied with relevant Statewide Planning Goals. Since this proposal is for
a minor (3.5-acre) zone map amendment to include the subject area within the Master
Plan, its rezoning and redesignation is also demonstrated to be consistent with the prior
approvals and applicable Goals.
. Goal 1 - Citizen Involvement
Springfield has an acknowledged citizen involvement program (CIP) and process for
securing citizen input on all proposed zone changes and plan amendments. Notice of the
zone map amendment will be sent pursuant to the City's acknowledged procedures in
compliance-with the City's CIP. Because the City's notice procedures will be followed,
> interested parties have an opportunity to participate in the process, and the amendment
does not modify the City's CIP, the proposal is consistent with Goal 1.
..
Goal 2 - Land Use Planning
Goal 2 requires that local comprehensive plans be consistent with statewide goals, that
local comprehensive plans be internally consistent, and that implementing ordinances be
consistent with acknowledged comprehensive plans. Goal 2 also requires that land use
decisions be coordinated with affected jurisdictions and that they be supported by an
adequate factual base. Since the subject area is wholly within the Springfield city limits,
the City of Springfield is the only affected jurisdiction. The Metro Plan and the SDC, as
well as the Statewide Planning Goals and applicable statutes, provide policies and criteria
for the evaluation of plan amendments. As discussed elsewhere in these findings, the
Page 19 of24
Exhibit A
amendment is consistent with the Metro Plan, the GRP and the City's imple11)enting land
use ordinances. Consequently, the proposal is consistent with Goal 2.
.
Goal 3 - Agricultural Lands
. This goal is inapplicable because it applies only to "rural" agricultural lands and the
subject property is within an acknowledgedUGB (OAR660-15-000(3)).
Goal 4 - Forest Lands
Goal 4 does not apply within urban growth boundaries (OAR 660-06-0020). Because the
areas affected by the proposal is inside an acknowledged UGB, Goal 4 is inapplicable.
GoalS - Open Space, Scenic And Historic Areas, Natural Resources
Goal 5 requires local governments to protect a variety of open space, scenic, historic, and
natural resource values. Goal 5 and its implementing rule (OAR 660-016) require
planning jurisdictions, at acknowledgment and as a part of periodic review, to:
(1) identify such resources;
(2) to determine their quality, quantity, 'and location;
(3) to identify conflicting uses;
(4) to examine the economic, social, environmental, and energy (ESEE)
consequences that could result from allowing, limiting, or prohibiting the
conflicting uses; and
(5) to develop programs to resolve the conflicts.
Because no part of the subject area is on an acknowledged Metro Plan Goal 5 inventory,
the zone map amendment has no impact to Goal 5 resources and is, therefore, consistent
with Goal 5.
.
Goal 6 - Air, Water, And Land Resources Quality
The purpose of Goal 6 is to maintain and improve the quality of the air, water and land
resources of the state. Generally, Goal 6 requires that development comply with
applicable state and federal air and water quality standards. Applicable state and federal
requirements regarding air, water and land resources are either implemented through the
standards adopted by the SDC and applicable development standards, or imposed and
enforced by state or federal agencies. Because the zone map amendment itself does not
authorize any specific development, there can be no direct impact to air, water or land
resources. Consequently, the proposal is consistent with Goal 6.
But even considering the use of the property for needed parking as identified in the
proposed Master Plan amendment, the future development represents an efficient use of
resources consistent with local, state and federal regulations protecting air, water and "land
resources. For these reasons the zone map amendment is consistent with Goal 6.
.
Page 20 of24
Exhibit A
.
Goal 7 - Areas Subject To Natural Hazards
Goal 7 requires that development subject to damage or that could result in loss of Ufe not
be planned or located in known areas of natural hazards and disasters without appropriate
safeguards. The goal also requires that plans be based on an inventory of known areas of
natural disaster and hazards. No part of the subject property site contains steep slopes,
consequently these findings do not discuss issues related to steep slopes or landslides.
With respect to steep slopes and Jandslides, the amendments are consistent with Goal 7.
All future development on the property must conform to the requirements of the
annexation agreement between PeaceHealth and the City, and will be required to comply
with SDC Article 27, Floodplain Overlay District (/FP) regulating development activity
within those areas of the City that are designated as an "area of special flood hazard."
PeaceHealth has developed a flood hazard boundary representing the "worst case" of
FEMA flood elevations or those flood elevations established by David Evans &
Associates as the "Corrected Effective Measurement" (CEM). To the extent that any
future development is planned within the flood hazard boundary, that development must.
comply with applicable standards set forth in SDC Article 27, which has b~en
acknowledged by the Land Conservation and Development Commission as being
consistent with Goal 7.
.
GoalS - Recreational Needs
Goal 8 requires local governments to plan and provide for the siting of necessary
recreational facilities to "satisfy the recreational needs of the citizens ofthe state and
visitors." Responsible governmental agencies must plan to meet these needs (1) in.
coordination with private enterprise; (2) in appropriate proportions; and (3) in such
quantity, quality and locations as is consistent with the availability ofthe resources to
meet such requirements." (OAR 660-015-000(8))
e.
Advisory guidelines for meeting Goal 8 encourage planners to give priority in meeting
such needs "to areas, facilities and uses that
"(a) meet recreational needs requirements for high density
population centers,
"(b) meet recreational needs of persons of limited mobility and
finances,
"(c) meet recreational needs requirements while providing the
maximum conservation of energy both in the transportation
of persons tot he facility or area and in the recreational use
itself,
"(d) minimize environmental degradation,
"(e) are available to the public at nominal cost, and
"(f) meet needs of visitors to the state."
The GRP is acknowledged as being in compliance with Goal 8. The GRP indicates no
proposed park or school is planned to be located on the Gateway MDR site, although the
recently adopted Willamalane Park and Recreation Comprehensive Plan identifies
Page 21 of24
Exhibit A
potential future park land in the vicinity but not on the subject area. A park needs
assessment was prepared by the applicant demonstrating that there is ample land on-site
within the boundaries of the previously approved Master Plan available to meet the park
and recreational needs of future residents. Willamalane and City staff reviewed this
assessment and concurred with its results. Because the amendments do not alter or any
way affect the City's Goal 8 resources or otherwise affect the ability of the City to apply
. its Goal 8 implementing standards, the proposal is consistent with Goal 8.
.
Goal 9 - Economic Development
Goal 9 requires the City to provide adequate opportunities for a variety of economic
activities vital to the health, welfare, and prosperity of the citizens. The City's Goal 9
analysis, the Springfield Commercial Lands Study (SCLS) was completed and
acknowledged by LCDC as consistent with Goal 9. The SCLS found the City to have a
deficit of commercial lands needed to meet supply through the year 2015 planning
horizon.
Earlier adoption of amendments to the Metro Plan and the GRP were found to help
reduce that deficit and therefore were consistent with Goal 9 and the City's Metro Plan
provisions impelenting Goal 9 through the SCLS. As a result of amendments to the text
of the SCLS, the City allowed Metro Plan and GRP diagram amendments for up to 99
acres within the Gateway MDR site to be mapped for Community Commercial and
Mixed Use land use designations, and subsequent rezoning to the Medical Services
and/or Mixed Use Commercial districts.
.
Adding the 3.5 acres proposed to be rezoned, the MUC and MS zoned acreage on the
RiverBend site totals only 90.5 acres - well within the proscribed limits in the SCLS, but
helping to further reduce the deficit .of needed commercially designated or zoned land.
Because the requested zone change implements the SCLS, its approval is consistent with
prior Plan amendments..and with earlier demonstrations of compliance with Goal 9.
Goal 10 - Housing
LCDC's Housing goal requires cities to maintain adequate supplies of buildable lands for
needed housing based on an acknowledged inventory of buildable lands. The 1999
Eugene-Springfield Metropolitan Area Residential Land and Housing Study Policy
Recommendation Report (RLS) was adopted by the Cities and recognized by DLCD.
This report contains a technical analysis which assigns density to the buildable portions
of the area subject to the requested zone change. The City's acknowledged refinement
plan for the area includes Residential Implementation Action 12.6, which provides:
" . . . The adopted master plan shall demonstrate that the site will be able to accommodate
the number of housing units within the range for the MDR land use designation in the
Metro Plan and Gateway Refinement Plan".
The earlier approval ofthe RiverBend Master Plan established consistency with this GRP
policy, and with Goal 10, by demonstrating that future residential development would be
consistent with expectations in the RLS, as wen as policies in the Metro Plan and GRP,
.
Page 22 of 24
Exhibit A
.
and standards in the Springfield Development _Code. The requested rezone removes a
nominal acreage from residential Plan designation and zoning, but does not affect the
Master Plan's continued ability to provide needed housing within the boundaries of the
amended Master Plan, and still leaves the majority of the parent tax lot zoned and
designated MDR, thus ensuring continued compliance with Goal 10.
Goal 11 - Public Facilities And Services.
This goal requires the provision of a timely, orderly and efficient arrangement .of public
facilities and services. Annexation agreements with the City ensure that an adequate
level of urban services will be provided to serve the property, and require that a master
plan be approved prior to development. This zone change request is submitted
concurrently with an amendment to the RiverBend Master Plan that incorporates the
,subject 3.5 acres proposed for rezoning into the Master Plan boundary.
Master Plan approval criteria require a demonstration that the proposed on-site and off-
site public and private improvements are sufficient to accommodate the proposed
development. Therefore, the requirements contained in the annexation agreement for the
subject property, coupled with the master plan criteria of approval, ensure compliance
with Goal 11.
.
Goal 12 - Transportation
Goal 12 requires local governments to provide and encourage a safe, convenient and
economic transportation system. The proposed map amendments for 3.5 acres of
property are not the result of any changes to the type or intensity of uses on the site, and
will not increase the trip generation for the site. as previously considered and approved by
the city. The proposed amendments are needed only to make minor revisions to the
boundaries of the RiverBend Master Plan in order to accommodate the previously
approved medical buildings and parking structure.
Based upon technical analysis from JRH Transportation Engineering, the proposed
amendments to the Master Plan, and concurrent changes to the applicable plan
designations, will not increase trip generation beyond the identified Phase 1 trip cap (per
GRP Residential Element Implementation Action 13.7). The proposed amendments will
also provide access and circulation supporting the planned medical center. Further, the
JRH traffic analysis demonstrates that the proposed amendment actually can be expected
)
to reduce reasonably anticipated PM peak hour vehicle trips from the subject area by 57
trips.
Because the requested amendments do not alter the trip profile for the proposed
development as demonstrated by the JRH Transportation Engineering analysis, the
amendment will not result in a "significant effect" on any transportation facility, and the
application is consistent with the requirements of the Transportation Planning Rule.
.
Page 23 of 24
Exhibit A
Goal 13 - Energy Conservation
Goal 13 is a general planning goal and provides limited guidance for site specific zone
map amendments. However, the availability of a large employer in proximity to a retail
and residential node and centered around a transit station as evisioned by newly adopted
Residential Implementation Action 13.6 provided transportation options that will serve to
reduce energy consumption. The proposed zone change will allow for parking facilities,
including structured parking, that will support the intensive medical center uses approved
previously. The ability to provide needed parking proximate to the medical center, and in
structure as was desired by the Planning Commission and City Council, provides for
greater energy conservation through more efficient site design and circulation, consistent
with Goal 13.
.
Goal 14 - Urbanization.
Goal 14 requires local jurisdictions: "To provide for an orderly and sufficient transition
from rural to urban land use." The subject site is within the Springfield UGB and city
limits, and within an urbanizing area of the community. The proposed rezoning
corresponds to the concurrently submitted Metro Plan and GRP diagram amendment and
results in efficient use of the site. for urban uses, thereby facilitating the compact urban
growth form consistent with the requirements of Goal 14.
Compliance with OAR 660-012-060
OAR 660-012-060, the state Transportation Planning Rule (TPR), requires amendments
to zoning maps or plan diagrams to determine if the amendment "significantly affects" a
transportation facility, and if so, sets forth means under Section (2) ofthe rule to address
such an effect. As demonstrated in the accompanying traffic impact analysis, and as
reference in the Goal findings above, the proposed zone change does not have a
"significant affect" on transportation facilities and therefore does not warrant analysis
under the TPR.
.
The proposed zone change accommodates structured parking and medical buildings
accounted for in the original RiverBend Master Plan approval, and as demonstrated in the
traffic analysis, traffic generated from the proposed development will not exceed the
Phase 1 (or overall) trip cap established through the prior Master Plan approval.
Therefore, the proposed zone change complies with the TPR and the above criterion.
.
Page 24 of 24
.
.
o
'I
:1
,J.
,
,
,
KEY
MIXED USE COMMERCIAL (MUC)
MEDIUM DENSITY RESIDENTIAL (MDR)
MEDICAL SERVICES (MS)
LOW-DENSITY RESIDENTIAL (LDR)
ADDITIONAL MEDICAL SERVICES (MS)
~
,~
800~
.
WIMBERLEY ALLISON TONG &: GOO
ANSHEN + ALLEN
WALKER MACY
KPFF CONSULTING ENGD;EERS
JRII TRANSPORTATION ENG[NEERJNG
DAVID EVANS AND ASSOCIATES
m
><
I
OJ
-I
R" OJ
1 ld
M In
ZONING DIAGRAM