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Home My WebLink AboutOrdinance 6148 11/07/2005 '. ) . I .l '\. ~.. .; . . ORDINANCE NO. 6148 (REGULAR) AN ORDINANCE AMENDING THE DOWNTOWN REFINEMENT PLAN TEXT CONSISTENT WITH THE METROPOLITAN AREA GENERAL PLAN DIAGRAM. DESIGNATION OF NODAL DEVELOPMENT/MIXED-USE FOR THIS AREA AND WITH THE RECOMMENDATIONS CONTAINED IN THE SPRINGFIELD STATION SPECIFC AREA PLAN REPORT. The City Council of the City of Springfield finds that: A. Article 8 of the Springfield Development Code sets forth criteria for refinement plan amendments. B. The City Council initiated the following Downtown Refinement Plan text amendment: Amend various sections and elements of the Downtown Refinement Plan text to incorporate recommendations in the Springfield Station Specific Area Plan Report and to reflect the Plan diagram amendment to Nodal Development Mixed-Use. (All of the text amendments are included in the attached Exhibit "B ") C. On October 4, 2005 the Springfield Planning Commission conducted public hearings to accept testimony and hear comments on this proposal. After the close of this public hearing the :r:>lanning Commission considered the testimony provided, including the staff report and all materials submitted in application. The Planning Commission voted 6 in favor, none opposed, to forward a recommendation of approval to the Springfield City Council. D. On October 17, 2005 the Springfield City Council held public hearings on this proposal. E. Evidence exists within the record and the findings attached hereto thatthe proposal meets the requirements of Article 8 of the Springfield Development Code. NOW, THEREFORE, THE CITY OF SPRINGFIELD DOES ORDAIN AS FQLLOWS: Section 1: The above findings, and the findings set forth in Exhibit A attached hereto and incorporated herein by reference are adopted. Section 2: The Downtown Refinement Plan text is hereby amended as described in Exhibit B attached hereto. , " . . . Section 3: If any section, subsection; 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. Section 4: Notwithstanding the effective date of ordinances as provided by Section 2.110 of the Springfield Municipal Code 1997, this Ordinance shall become effective upon the date that all of the following have occurred: (a) the ordinance has been acknowledged as provided by ORS 197.625; and (b) at least 30 days have elapsed since the date the ordinance was approved by the City Council. Adopted by the Common Council of the City of Springfield this ~ day of -6erober, 2005 by a vote of 5 in favor and 0 against. (1 recused) November - - 2005. Approved by the Mayor of the Cit of Springfield this 8th day ofectcber; \. - November ATTEST: ~~ City Record . REVIEWED & APPROVED iT: FO . Ordinance No. ~148 . . ,. City Of Springfield Development Services Department September 8, 200 Staff Report Applicant: City of Springfield Request: Amend Metro Plan diagram for Downtown Area to Mixed UseINodal Development; amend Downtown Refinement Plan diagram to Mixed UselNodal Development; amend Downtown Refinement Plan text by incorporating recommendations of the Springfield Station Area Plan Steering Committee; and rezone all tax lots within the Downtown Mixed Use Nodal Development Area to Mixed Use COlllinercial, Mixed Use Residential or Public Land and Open Space Attachments: Attachment A: Downtown Nodal Development Area Plan Designation Map- Proposed Attachment B: Downtown Nodal Development Area - Current Zoning Attachment C: Downtown Nodal Development Area - Proposed Zoning Attachment D: Proposed Refinement Plan Text Amendments Attachment E: A Refinement Plan for Springfield Downtown Attachment F: Springfield Station Specific Area Plan I. Executive Summary Journal No's. LRP 2005-00026 LRP 2005-00027 ZON 2005-00040 ProcedureType: Type IV -- Legislative EXHIBIT A 1 As part of the acknowledgment process for adoption of TransPlan - 2001, Eugene, Springfield and Lane County elected officials agreed to implement "alternative perfonnance measures" as a substitute for the more difficult to achieve" 1 0% reduction in vehicle miles traveled (vmt)" during the horizon of the plan (20 years). These alternative perfonnance measures include a land use component that obligates the City of Springfield to redesignate a total of 400 acres, at several sites across the city, to "nodal development." The first site with this designation was the Glenwood river front, adopted in August, 2005; Downtown and Mohawk are proposed as the . next sites. St(!ff Report: Proposed Amendments to Metro Plan Diagram, Downtown Refinement Plan Diagram and Text, and Concurrent Rezonin: ram Amendments ,. 2 . Downtown Refinement Plan ~xed-Use Nodal Development Boundary . Nodal development designation is intended to create mixed-use centers along major transportation corridors. Each center can include an emphasis in use more suited to the economic advantages of the area (retail, service, office, industrial, residential), but the expectation is that the ability to mix uses on the same site or within the same building will gradually result in live/work/shop choices throughout the City that currently don't exist. In addition, each of these sites is currently or will be well served by transit, and currently or will through development, provide direct bike/ped connections internally and to the adjacent neighborhood. The corollary benefits associated with successfitl nodal development are fewer or shorter auto trips, less congestion, fewer air quality issues and less household income devoted to the automobile. Even where nodes are only marginally successful in creating an actual "mix" of compatible uses, dispersal of these opportunity sites means that residents of Springfield, regardless of distance removed from non-residential use, will have nearer and more accessible choices for shopping, services and employment. . Each nodal site may use a variety of zoning districts to implement and promote the intended dominate use, but in order to provide a full complement of choices to achieve a true mix of use, other compatible zoning districts are allowed. In the downtown for example, land use policies in the refinement plan emphasize retail, entertainment, civic and residential uses. These preferred land uses can be accommodated with MUC or MUR zones for a mix of use within the same building; with the PLO zone for public/civic land and buildings; and with MDR or.HDR zones Staff Report: Proposed Amendments to Metro P; Concurrent Rezoning- ivntown Refinement Plan Diagram and Text. and 19ram Amendments t. 3 . for discrete use of higher density residential development. Attachment C shows proposed new zoning to implement nodal designation in the downtown. The text of the Refinement Plan is proposed to undergo significant revision throughout the document. Most of the proposed changes are derived from the work completed by the City and Downtown stakeholders during the preparation of the Springfield Station Specific Area Plan (c. 2000-2001). A steering committee from the larger group of stakeholders was fonned for the purpose of evaluating the existing Downtown Refinement Plan and recorrimending where changes and updates should occur. Those specific recommendations may be reviewed in Part 2, section 9 ofthe Technical Appendix of the Springfield Station Specific Area Plan. The majority \ of these recommendations are included in Attachment D in verbatim form. However, several of these recommendations were in the fonn of direction, rather than replacement, i.e. "This chapter should either be updated or deleted from the Refinement Plan." (Reference to: Involvement of Downtown Organizations, page 3). In those circumstances, staff prepared text now proposed for Planning Commission and City Council consideration. . In both circumstances (steering committee and staffrecommendations) the intent is to make the text ofthe Refinement Plan contemporary, reflect changes that have occurred since the Plan was adopted in 1987, identify new goals and projects, and maintain consistency with the Metro Plan. A central theme of the Downtown Refinement Plan since its adoption has been to create a mixed- use, pedestrian-friendly, retail-civic-entertainment focus that would become a destination for residents throughout the metropolitan area. In addition, more compact, higher density residential uses are sought in and adjacent to the Downtown Mixed Use Area; There is also a component devoted to Booth-Kelly, including a recommendation that "regional destination uses, e.g. Regional Arts Center and Campus" be added to the use list. The inclusion ofthis activity can be achieved by amending the use list in Article 19 BOOTH-KELL'( MIXED USE DISTRICT. This does not require, as suggested in the SSAP, an amendment to Policy # 32 in the Metro Plan. No change in the Booth-Kelly designation is proposed, therefore single changes to the use list for activities that are otherwise accommodated generally under the tenn "tourist commercial" do not rise to the level of Metro Plan policy. J The City's Environmental Services Division has proposed some changes to the Booth Kelly Development Area to reflect the work performed on the Mill Race Restoration Area Project. This text is descriptive of the project's intent, completion to-date, and future tasks or recommendations intended to improve the water quality of the Mill Race. Although the inclusion of this text represents a significant body of work, it is consistent with existing direction taken by Council regarding implementation of the Endangered Sp,ecies Act, the Clean Water Act and the City's overall responsibility of resource stewardship. . The proposed amendments maintain and enhance the original goals of the Downtown Refinement Plan, and by extension the Metro Plan, by: allowing more residential opportunities within the predominate commercial zone (MUC); emphasizing downtown as a people place accommodating shoppers, walkers and residents; recognizing the importance of the City's commitment to infrastructure improvements; and by limiting some uses considered incompatible with these goals. Those uses are either exclusively auto-dependent or are out of scale with the type of uses sought for the downtown (see page 4l-4and 41-5 of the Springfield Development Staff Report: Proposed Amendments to Metro PIa' Concurrent Rezoning intown Refinement Plan Diagram and Text, and 'jram Amendments ' t,' 4 . Code for the complete list). Some of these uses already exist downtown but, with the exception of a fairly extensive automobile dealership east of 8th Street, the remaining businesses are otherwise compatible with downtown's other businesses. In the case of the larger automobile dealership, staff is recommending that the boundary of the Downtown Nodal Overlay District be withdrawn to 8th Street on the east The area east of 8th to 14th would remain designated Commercial on the Metro Plan diagram; would remain zoned Community Commercial; and would no longer be within the boundary of the Downtown Refinement Plan. For all other properties within the modified Nodal Overlay Boundary currently occupied by restricted uses, staff is recommending the following policy to respond to this circumstance: "At the time of a Zoning Map amendment to a specific mixed use zone pennitted within the Downtown Mixed Use area, the presence of any lawful use that would then not be pennitted within that zone shall be considered a pre-existing pennitted use. This use may continue or expand, regardless of ownership transfer, unless abandoned for 6 months or more as specified in Springfield Development Code Article 5, Non-Confonning Use." This new policy will create a cushion for the existing financial commitment made to establish and maintain these uses, but will also set the same limits on expansion that other businesses face when subject to the provisions of Article 5. II. Procedural Requirements . Procedural requirements for amending the Metro Plan Diagram, the refinement plan diagram and text, and zone changes are described in Article 7 METRO PLAN AMENDMENTS, Article 8 ADOPTION OR AMENDMENT OF REFINEMENT PLAN TEXT, REFINEMENT PLAN DIAGRAMS AND DEVELOPMENT CODE TEXT, and Article 12 OFFICIAL ZONING MAP AMENDMENTS, of the Sprfngfield Development Code. The following procedural relationships should be noted: "When a Metro Plan diagram amendment requires a refinement plan or function plan diagram, or map and text amendment for consistency, the Metro Plan, refinement Plan and functional plan amendments shall be processed concurrently." (SDC 7.110(4)). "The Planning Commission [or Hearings Official] may make a recommendation to the City Council to . approve, approve with conditions or deny Zoning Map amendment and Metro Plan diagram amendment based upon approval criteria. The City Council shall make the final local decision on all Zoning Map amendments involving a Metro Plan diagram amendment" (SDC 12.030(2)). Article 14 PUBLIC HEARINGS, Section 14.030 (2) requires that legislative land use decisions be advertised in a newspaper of general circulation, providing infonnation about the legislative action and the tirne~ place and location of the hearing. This notice has been provided. Findings: . I. The City Council has initiated these amendments to the Metro Plan diagram, the Downtown Refinement Plan diagram and text, and the rezoning of property within the Downtown Refinement Plan Mixed Use Area. . 2. A "DLCD Notice of Proposed Amendment" was mailed to the Department of Land Conservation and Development on August 12,2005, stating the City's intent to make Staff Report: Proposed Amendments to Metro pi_ Concurrent Rezoning _ fvntown Refinement Plan Diagram and Text, and 'iagram Amendments i < . . . . 5 these amendments and zone changes. The notice was mailed more than 45 days in advance of the first evidentiary hearing as required by ORS 197.610. 3. Notice of the public hearing concerning this matter was published on September 24,2005 in the Springfield News, advertising hath the hearing before the Springfield Planning Commission on October 4,2005 and the City Council on October 17,2005. The content of the notice followed the direction given in Section 14.030 (2) of the SDC for these actions. Conclusion: Procedural requirements described in Articles 7, 8, 12 and 14 of the SDC have been followed. Notice requirements established by DLCD for these actions have also been followed. III. Decision Criteria and ,Findings Metro Plan Amendment - Criteria and Findings Article 7 describes the criteria to be used in approving a Type II Metro Plan amendment. SDC Section 7.070(3) states: "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." Criterion (a) the amendment must be consistent with the relevant statewide planning goals adopted by the Land Conservation and Development Commission. . Goal1: Citizen Involvement To develop a citizen involvement program that insures the opportunity for citizens to be involved in all phases of the planning process Findings The planning process responsible for this site being considered for designation as a node began in 1998 at about the three quarter-point of the TransPlan update. The cities and Lane County proposed alternative perfonnance measures to achieve the equivalent of a 10% reduction in vehicle miles traveled (vmt) required by the Transportation Planning Rule (TPR) for all Transportation System Plans (TSPs). The proposal to use the alternative strategies, including nodal development designation throughout Eugene and Springfield, underwent an extremely robust citizen involvement process in the two years or so it took to perfect. Included in this process were community work shops, local government hearings and hearings at the Land Conservation and Development Commission. The alternative perfonnance measures were as much a construction ofthe citizens of Eugene-Springfield as they were a proposal from the joint elected officials. The Land Conservation and Development Commission acknowledged this land use measure (nodal development) on May Staff Report: Proposed Amendments to Metro Concurrent Rezoning vntown Refinement Plan Diagram and Text, and WranI Amendments . . . . . 6 8,2001. Eugene, Springfield and Lane County elected officials adopted TransPlan and amendments to the Metro Plan in December, 2001. All property owners and tenants within the downtown, and all property owners and tenants within 300 feet of the downtown boundaries received mailed notice of the public hearing before the Planning Commission and the public hearing before the City Council. The DLCD received a copy of the proposal for distribution to interested parties on August 12,2005. Goal 1 Citizen Involvement is satisfied. Goal 2: Land Use Planning To establish a land use planning process and policy framework as a basis for all decisions and actions related to use of land and to assure an adequate factual based for such decisions and actions. Findings The Eugene-Springfield Metropolitan Area General Plan is the basic guiding land use policy document for the City of Springfield. The "Purpose" section of the Metro Plan describes it as a framework plan. It is intended that more detailed refinement plans, programs, and policies should supplement the Metro Plan (E. Relationship to Other Plans and Policies, page 1-5, Metro Plan). The'Eugene-Springfield Transportation System Plan, TransPlan, was adopted in 2001. Under state law, TransPlan is a functional plan of the Metro Plan. TransPlan made findings and established policies that support and promote mixed-use r development and nodal development. TransPlan includes a map titled "Potential Nodal Development Areas for the Eugene-Springfield Metro Area." The Downtown Mixed Use Area is identified as Site 8B. TransPlan includes specific land use policies implementing nodal development, including Land Use Policy #1: Nodal Development. Springfield's various neighborhood refinement plans are adopted as components of the Metro Plan, and are authoritative in the land use policies that will guide development within their boundaries. The Springfield Downtown Refinement Plan, East Main Refinement Plan, Gateway Refinement Plan, Mohawk Specific Development Plan and the Glenwood Refinement Plan, each show mixed-use on their land use maps and discuss mixed use development in their plan texts. In June 2002, the Springfield City Council adopted an ordinance that added Article 41- Mixed Use Zoning Districts and Article 4 I-Nodal Development Overlay District to the Springfield Development Code for the purpose of implementing the land use policy elements. SteW Report: Proposed Amendments to Metro. Concurrent Rezoni, Itown.Refinement Plan Diagram and Text, and '- - gram Amendments . . . . . 7 of TransPlan. In adopting Articles 40 and 41, findings were made that the Articles were consistent with the Metro Plan. The addition of Articles 40 and 41 to the Springfield Development Code was acknowledged by the Land Conservation and Development Commission. The current designation of this area on the Metro Plan diagram is a combination of community commercial and government and education with a mixed use overlay. Changing to Nodal Development/Mixed Use has only the modest effect of allowing ground-floor . residential and prohibiting a finite list of auto dependent uses. For all intents and purposes, the current designation, current zoning and current refinement plan designation and policies allow almost point-for-point exchange of uses permitted by the new designation. The more telling aspect of this change is the commitment of this area's future to a more compact, more pedestrian-oriented shop-live-work environment well served by a variety of transportation option,S. Goal 2 Land Use Planning is satisfied. Goal 3: Agricultural Lands To preserve and maintain agricultural lands. Findings Agricultural land does not include land within acknowledged urban growth boundaries. All of the land included in this proposed redesignation is within the urban growth boundary. Goal 3 Agricultural Lands does not apply to this action. Goal 4: Forest Lands To conserve forest lands by maintaining the forest land based 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. Findings The Metro Plan was acknowledged by the state in April, 1982, and has undergone two major periodic review cycles, in 1987 and in 1994-2005, both of which were acknowledged by LCDC. None of these activities included forest lands as a component of the Eugene-Springfield buildable lands inventories or park and open space designations, or even tangentially as a Goal 5 natural resource. In any case, the Downtown Mixed Use Area is not suited to this classification of resource land as such land is described in the guidelines of this Goal. Goal 4 Forest Lands does not apply to this action. Staff Report: Proposed Amendments to Metro J Concurrent Rezonin:s ownRefinement Plan Diagram and Text, and igram Amendments . . . . . 8 GoalS: Natural Resources, Scenic and Historic Areas, and Open Spaces To protect natural resources and conserve scenic and historic areas and open spaces. Findings The most recent Periodic Review of the Metro Plan included the task of compliance with the natural resources component of Goal 5. Community-wide surveys were conducted, including infonnation provided by citizen volunteers, property owners, fish and wildlife experts, air photos, earlier inventories, and staff site visits. As this entire body of work progresses through the review, evaluation, and adoption process, no natural resources other than the Mill Race and Willamette River are within the boundaries of the Downtown Refinement Plan. The historic structures that exist downtown are not affected by this change: "The overlay zone applies to all property where/NDO is indicated on the Springfield Nodal Overlay Map, except where the property is an historic property according to Article 30 ofthis Code." (SDC 41.010(21) Changing the Metro Plan diagram to Nodal Development/Mixed Use does not provide for a tennination in the City's obligation to comply with this Goal. The focus of nodal development is on land to be used for development, not resource protection. None of the provisions of Nodal Development, either in the Metro Plan or the Development Code, supersede Goal 5 compliance. Goal 5 Natural Resources is accommodated by this proposal. Goal 6: Air, Water and Land Resources Quality To maintain and improve the quality of the air, water and land resources of the state. Findings The proposed redesignation of the Downtown Mixed Use Areato Nodal Development/Mixed Use is intended to enable redevelopment of the downtown, thereby conserv:ing building resources, introduce uses that will provide opportunities to live, work and shop in such proximity that use of motor vehicles (based on number and length of individual trips) is expected to decline, thereby reducing congestion and the deleterious effects on air quality that such circum$tances create. Increasing jobs and housing opportunities along transportation corridors and in close relationship to major transit facilities also promotes opportunities and choices for citizens living outside the area to travel to the downtown using different modes. This in turn conserves transportation resources, including fuel, and may reduce long-tenn maintenance costs. This amendment will not influence the requirements and obligations all new development must observe regarding the City's stonn water management standards or ground water protection ordinances. Goal 6 Air, Water and Land Resources Quality is promoted by this action. Staff Report: Proposed Amendments to Metro F Concurrent Rezoning ntown Refinement Plan Diagram and Text, and .linoTClll1 Amendments " 9 . Goal 7: Areas Subject to Natural Disasters and Hazards To protect life and property from natural disasters and hazards. Findings All sites associated with natural hazard, including flood plain, rapidly moving landslides, weak soil foundation, and earthquakes have been mapped and included in the City's Hazard Mitigation Plan, adopted November 15, 2004, and approved by the FEMA on November 30, 2004, Changing the Metro Plan diagram to Nodal Development/Mixed Use has no effect on the applicability of the Hazard Mitigation Plan, compliance with the structural specialty code, the one and two dwelling code, or the City's floodplain overlay district standards. All commercial and multi-family residential development is subject to the City's site plan review standards. Though the Downtown Mixed Use Area borders some unstable soils on Willamette Heights and the Willamette River flood plain, the downtown area doe not contain any known hazards. Goal 7 Areas Subject to Natural Disasters and Hazards is not compromised by this action. GoalS: 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 recreationalfacilities including destination resorts. Findings The City adopted the Willamalane Park and Recreation District Comprehensive Park and Recreation Plan on November 15, 2004, as a refinement plan of the Metro Plan. This post- acknowledgement plan amendment was acknowledged by the Director of the Department of Land Conservation and Development on December 6, 2004. Amending the Metro Plan diagram to Nodal Development/Mixed Use does not relieve the City of its continuing obligation to implement the Metro Plan or its attendant refinement plans. In fact, there is an obligation to provide public spaces within nodes that is not required elsewhere. Redesignation of the downtown has no effect on the policies, programs or projects identified in the Park Plan which apply to the downtown. The potential increase in population that may occur as a result of this designation will remain within the distance guidelines (up to Y2 mile service area) and area standards per 1,000 population (2 acres per thousand) for Island Park. Goal 8 Recreational Needs is satisfactorily addressed by this proposal. 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. Staff Report: Proposed Amendments to Metro 1 Concurrent Rezoning 11 Refinement Plan Diagram and Text, and jram Amendinents . . 10 . Findings Amending the Downtown Mixed Use Area to Nodal Development/Mixed Use more precisely implements existing Metro Plan policies regarding Springfield's Downtown. All existing Community Commercial zones will be revised to Mixed Use Commercial; all existing Medium Density Residential zones will be revised to Mixed Use Residential. There is no net change in commercial zoning, but there is an increase in commercial uses allowed in Mixed Use Residential (20% of the ground floor), and the use list in MUC offers more uses than CC (albeit 11 auto-related or auto-dependent uses are prohibited). Any existing use that falls within this category will be considered a pre-existing pennitted use and will be allowed to remain with limitations only on expansion. NOTE: OAR Division 9, and specifically 660-009-001 0(4) states: Notwithstanding paragraph (2) above, a jurisdiction which changes its plan designations oflands in excess of two acres to or from commercial or industrial use, pursuant to OAR 660, division 18 (a post acknowledgement plan amendment), must address all applicable planning requirements." This proposal is not changing land from non-commercial to commercial or from commercial to non-commercial; it is commercial to commercial. An economic opportunities analysis is not called for in the absence of any net difference in commercial acreage. . Goal 9 Economic Development is promoted by this action. Goal 10: Housing To provide for the housing needs of the citizens of the state. Findings The proposed Metro Plan diagram amendment will give clear definition to the Downtown Nodal Development/Mixed Use Area. The purpose of this change is to further validate the policies of the Metro Plan and Downtown Refinement Plan, both of which call for this area to be developed with a mix of commercial and medium to high density residential uses. The close proximity of these uses combined with the presence of a major transit facility presents a more frugal arrangement of transportation, jobs, housing and employment opportunities than exists outside of designated nodes. Since there is no prohibition on multi-family residential anywhere inside this designation, and the current limitation on residential located on "second floors or above" is removed, this action increases residential development possibilities throughout downtown. . The purpose of the Nodal Development Overlay District is, in part, to: ".. .support pedestrian- friendly, mixed-use development as outlined in the State Transportation Planning Rule. Design standards for the NDO District are structured to foster the essential characteristics of pedestrian- friendly, human scale development that define 'nodal development.' These include (e) A mix of housing types and residential densities that achieve an overall net density of at least 12 units per acre." The existing designation does not compel minimum densities; it allows second story residential uses. . Staff Report: Proposed Amendments to Metro PI/' Concurrent Rezonin, , , wn Refinement Plan Diagram and Text, and 7am Amendments . . . . . 11 Goal 10 Housing is implemented by this action. GoaIn: Public Facilities and Services To plan and develop a timely, orderly and efficient arrangement of public facilities and services to serve as a framework for urban and rural development. Findings This action constitutes a commitment from the City to develop and redevelop downtown with a compatible mix of retail, service, tourist and residential uses utilizing the existing infrastructure (grid system of streets, alleys, sidewalks). In addition, placing these uses near and around a major transit facility relieves pressure elsewhere on the transportation system. This action does not require more public facilities and services than the current similar Plan designation Goal 11 is satisfied. Goal 12: Transportation To prov~de and encourage a safe, convenient and economic transportation system. Findings Eugene, Springfield and Lane County adopted the TransPlan update in 200 I. This update incorporated the substantial amendments that had been made to Goal 12 administrative rules during the 10 year interval of the TSP update. A significant component of the new TransPlan is the "alternative perfonnance strategies" included in Chapter Two (Policy Element). Land Use Policy #1, Nodal Development, states: "Apply the nodal development strategy in areas selected by each jurisdiction that have identified potential for this type of transportation-efficient land use pattern." Appendix A (Maps) of TransPlan, first map is titled "Potential Nodal Development Areas for the Eugene-Springfield Metro Area." This map identifies the Downtown Mixed Use Area as "Nodal Development Area site 88." Appendix G: LCDC Order Approving Alternative Plan Performance Measures" includes the following recommendations: "2. Eugene and Springfield need to specify specific areas for nodal development within one year. TransPlan identifies approximately 50 areas as having potential for nodal development. Eugene and Springfield need to move quickly to pick which of the 50 areas to designate as nodes and set general boundaries to guide subsequent detailed planning. 3. Eugene and Springfield need to adopt Metro Plan designations and zoning amendments for the specified nodes within two years after TransPlan adoption. Currently, most of the identified nodes are planned and zoned to allow continue auto-oriented development. This means inappropriate and poorly designed uses that could easily frustrate nodal development can be located in nodes. To be successful, nodes generally require a mix of mutually supportive pedestrian and transit-friendly uses and a good network of streets. If interim development Staff Report: Proposed Amendments to Metro Concurrent Rezon{ ,ztown Refinement Plan Diagram and Text, and ram Amendments . . 12 . includes inappropriate uses or is poorly laid out, the result could be to make a much larger area and perhaps a whole node unsuitable for nodal development." Oregon Administrative Rule 660-012 implements Goal 12. This Rule (TPR) includes the following definitions: (14) "Pedestrian district" means a comprehensive plan designation or implementing land use regulations, such as an overlay zone, that establish requirements to provide a safe and convenient pedestrian environment in an area planned for a mix of uses likely to support a relatively high level of pedestrian activity. Such areas include but are not limited to: (a) Lands planned for a mix of commercial or institutional uses near lands planned for medium to high density housing; or (b) Areas witha concentration of employment and retail activity; and (c) Which have or could develop a network of streets and accessways which provide convenient pedestrian circulations." (23) "Transit-Oriented Development (TO D)" means a mix of residential, retail and office uses and a supporting network of roads, bicycle and pedestrian ways focused on a major transit stop designed to support a h{gh level of transit use. The key features of transit oriented development include: . (a) A mixed use center at the transit stop, oriented principally to transit riders and pedestrian and bicycle travel fonn the surrounding area; (b) High density of residential development proximate to the transit stop sufficient to support transit operation and neighborhood commercial uses within the TOD; (c) A network of roads, and bicycle and pedestrian paths to support high levels of pedestrian access within the TOD and high levels of transit use." The TPR also includes a process for plan and land use regulation amendments. This section of the TPR requires a detennination of the impact on existing or planned transportation facilities of the proposed amendment. In making this determination, the local jurisdiction must assess whether the proposal will significantly affect the function, capacity and perfonnance standards of the facility. This significant affect occurs if it: "(a) Changes the functional classification of an existing or planned transportation facility; (b) Changes standards implementing a functional classification system; (c) Allows types or levels ofland uses which would result in levels of travel or access which are inconsistent with the functional classification of a transportation facility; or (d) Would reduce the perfonnance standards of the facility below the minimum acceptable level identified in the TSP." . Ifthe proposal does significantly affect a transportation facility, then the rule requires that the impact be mitigated by one or more of the following methods: "(a) Limiting allowed land uses to be consistent with the planned function, capacity, and perf0TI11anCe standards of the transportation facility; Staff Report: Proposed Amendments to Metro - Concurrent Rezonin; , "'in Refinement Plan Diagram and Text, and endments , . 13 . (b) Amending the TSP to provide transportation facilities adequate to support the proposed land uses consistent with the requirements of this division; (c) Altering land use designations, densities, or design requirements to reduce demand for automobile travel and meet travel needs through other modes; or (d) Amending the TSP to modify the planned function, capacity and perfonnance standards as needed, to accept greater motor vehicle congestion to promote mixed use, pedestrian friendly development where multimodal travel choices are provided." . . The proposed amendment will allow the Mixed Use Commercial and Mixed Use Residential zones (Article 40) to be applied where currently Community Commercial and Medium Density Residential zones apply. In addition, the Nodal Overlay District (Article 41) will apply. Article 41 institutes design standards to Olient buildings to the street; prohibits parking between streets and buildings; creates pedestrian environments; provides public spaces; has a minimum density of 12 units per acre; and prohibits eleven auto-related, auto-dependent uses currently allowed in the CC district. Article 40 provides a maximum number of off-street par~ing spaces; allows maximum use of the site; establishes maximum setbacks; requires at least one major pedestrian entrance; and establishes a ratio of building size per pedestrian amenity. The TPR allows for an automatic reduction in trip calculation attributed to the new use (amendment): "( d) The purpose of this section is to provide an incentive for the designation and implementation of pedestrian-friendly, mixed-use centers and neighborhoods by lowering the regulatory barriers to plan amendments which accomplish this type of development. The actual trip reduction benefits of mixed-use, pedestrian-friendly development will vary from case to case and may be somewhat higher or lower than presume pursuant to (a) above. The Commission concludes that this assumption is warranted given general infonnation about the expected effects of mixed-use, pedestrian-friendly development and its intent to encourage changes to plans and development patterns." The reference to "( a) above" in this section is the automatic 10% reduction in trips assumed through approval of a mixed-use, pedestrian-friendly center which prohibits such uses as gas stations, car washes, storage facilities and motels. The TPR also assumes that any of the following circumstances constitute "mixed-use, pedestrian-friendly centers or neighborhoods:" "(A) An existing central business district or downtown; (C) An area designated in an acknowledged comprehensive plan as a transit oriented development or a pedestrian district; or (D) An area designated as a special transportation area as provide for in the Oregon Highway Plan." ' The Downtown Mixed Use Area is designated as a "Node" in TransPlan (Site 8B, Map of Potential Nodal Development Areas for the Eugene-Springfield Metro Area); Article 41 of the Springfield Development Code implements the nodal designation and requires the creation of pedestrian-friendly environments; Main Street from the bridges to 10th Street is designated as a "special transportation area" by ODOT; and the Downtown Mixed Use Area is regarded as Springfield's central business district. Staff Report: Proposed Amendments to Met/. Concurrent Rezoni. '"11 Refinement Plan Diagram and Text, and um Amendments . . . 14 Existing transportation facilities that serve this area are: the Main-South A couplet, and A and B Streets along the east-west axis; Mill Street, the Pioneer Parkway couplet, and 5th and ih Streets along the north-south axis. The analysis of the regional system conducted during the TransPlan update did not reveal any level of service issues or other functional problems requiring modernization, safety, or reclassification for these facilities (An access management study (Project 838) for the length of Main Street, from 1-5 to the UGB is the only project on any of these facilities). This Plan amendment will not change the functional classification of an existing transportation facility (TransPlan does not identify any planned transportation facilities for this area). This Plan amendment will not change standards implementing a functional classification system; there are no new uses pennitted; some existing uses are prohibited; no more intensive use of land is pennitted. This Plan amendment will not allow types or levels ofland uses which would result in levels of travel or access which are inconsistent with the functional classification of a transportation facility. The existing development density is 100% of the site: no change in this allowance in the proposal. The existing use list is unlimited conunercial and multi-family residential; the change included in the proposal eliminates II auto-related/auto-dependent uses. The proposal requires mandatory pedestrian amenities to accommodate visitors and residents utilizing the newly developed major transit facility (Springfield Station). The existing designation allows "big-box" retail; implementation of this proposal through application of Article 41 of the Springfield Development Code will limit the building footprint of single occupant retail uses to ,50,000 square feet. This Plan amendment will not reduce the perfonnance standards ofthe facility beiow the minimum acceptable level identified in the TSP. The TSP identifies LOS on Main as .95; on South A as .90; and all other roadways as LOS D (v/c=.88-.97). All facilities are operating within this guidelines; the proposal does not allow more intensive use or uses and actually prohibits uses permitted under the current designation. Goal 12 Transportation is satisfied. Goal 13: Energy Conservation To conser<ye energy. Land and uses developed on the land shall be managed and controlled so as to maximize the conservation oj all Jorms oj energy, based upon sound economic principles. Findings This is a macro level goal that does not frequently lend itself to site-specific plan diagram amendments. However, the following guidelines from the goal demonstrate this proposal's compliance to Goal 13: Staff Report: Proposed Amendments to Metro Concurrent Rezonii vn Refinement Plan Diagram and Text, and r-un Amendments -----.' . . . 15 . 3. Land use planning should, the maximum extent possible, seek to recycle and re-usevacant land and those uses which are not energy efficient. 4. Land use planning should, to the maximum extent possible, combine increasing density gradients along high capacity transportation corridors to achieve greater energy efficiency. The proposal implements mixed use activities in an attempt to create live-work-shop environments in proximity to higher density residential uses and major transit facilities. This designation promotes alternative travel modes by requiring construction of pedestrian amenities; by locating within ~ mile of a major transit facility (Springfield Station); by requiring building orientation to favor pedestrians over automobiles; and by prohibiting certain auto-related, auto- dependent uses. The proposal establishes minimllm residential density, allows full development of the site, and sets a maximum bound on off-street parking. Goal 13 Energy Conservation is served by this proposal. Goal 14: Urbanization To provide for an orderly and efficient transitioll fr.om rural to urban land use. Findings . The main purpose of this goal is to address needed inventories of buildable land within UGB's and how that land is converted from rural to urban. There is an expectation built into this goal that what land is in the inventories ,will be developed in a cost-efficient, orderly manner thereby reducing the pressure on cities to seek additional rural land for urban development prematurely. The City has a number of objectives in mind when designating sites for nodal development. The main objective is creation of dispersed mixed-use opportunities for employment, housing and shopping: Making these various opportunities accessible to the widest possible number of Springfield residents and businesses reduces the more traditional, expensive and land consumptive development models. Of equal importance, but perhaps a less obvious objective, is the intensification of use that is promoted by these designations. In many cases, past development practices and patterns did not maximize the use ofland thereby creating a secondary class of land categorized as under- developed or under-utilized. By creating opportunities that include minimal setbacks, maximum parking, and more than one use on-site, redevelopment, when it comes, will be able to take advantage of this new allowance. The net effect of higher density, higher intensity, and mixed use is better utility of existing inventory and therefore a less urgent need to replenish the inventories. Goal 14 Urbanization is supported by this proposal. . Goal 15: WilIamette River Greenway Staff Report: Proposed Amendments to Metro Concurrent Rezon . , iwn Refinement Plan Diagram and Text, and IYlm Amendments 16 . To protect, conserve, enhance and maintain the natural, scenic, historical, agricultural, economic and recreational qualities of lands along the Willamette River and the Willamette River Greenway. Findings The western border of the Nodal Development designation abuts the established Willamette River Greenway Boundary at Island Park. This proposal does not include any amendments to the Greenway Overlay District. This proposal does not affect the ongoing implementation of the City's Greenway ordinance. Goal 15 Willamette River Greenway is sustained by this proposal. Goals 16-19 Estuarine Resources, Coastal Shorelands, Beaches and Dunes and Ocean Resources. . Findings The lands to which these goals apply are well west of the land proposed to be amended by this action. .' Goals 16-19 Estuarine Resources, Coastal Shorelands, Beaches and Dunes and Ocean Resources do not apply to this proposal. The preceding narrative demonstrates compliance with this criterion. Criterion (b) Adoption of the amendment must not make the Metro phm internally inconsistent. This proposal will convert an existing, poorly defined "mixed use" designation, to a site-specific Nodal Development Mixed Use site'. This action promotes the following Metro Plan policies: Residential Land Use and Housing Element A.I0 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. A.ll Generally locate higher density residential development near employment or commercial services, in proximity to major transportation systems or within transportation-efficient nodes. . A.13 Increase overall residential density in the metropolitan area by creating more opportunities for effectively designed in-fill, redevelopment, and mixed use while considering impacts of increased residential density on historic, existing and future neighborhoods. A.I? Provide opportunities for a full range of choice in housing type, density, size, cost and location. Staff Report: Proposed Amendments to Met' Concurrent Re2.v.. ,_'wn Refinement Plan Diagram and Text, and '1m Amendments 17 . A.19 Encourage residential developments in or near downtown core areas in both cities. Economic Development Element 14. Continue efforts to keep the Eugene and Springfield central business districts as vital centers of the metropolitan area. 28. Recognize the vital role of neighborhood commercial facilities in providing services and goods to a particular neighborhood. 29. Encourage the expansion or redevelopment of existing neighborhood commercial facilities as surrounding residential densities increase or as the characteristics of the support population change. Environmental Design Element I. In order to prorp.ote the greatest possible degree of diversity, a broad variety of commercial, residential, and recreational land uses shall be encourage when consistent with other planning policies. . Transportation Element 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. 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 with ~ mile of transit stations, major transit corridors, employment centers, and downtown areas; and development and redevelopment in designated areas that are or could be well served by existing or planned transit. F.5 Within three years of TransPlan adoption, apply the ND, Nodal Development, designation to areas selected by each jurisdiction, adopt and apply measures to protect designated nodes from incompatible development and adopt a schedule for completion of nodal plans and implementing ordinances. F.26 Provide for a pedestrian environment that is well integrated with adjacent land uses and is designed to enhance the safety, comfort and convenience of walking. Energy Element . 8. Commercial, residential, and recreational land uses shall be integrated to the greatest extent possible, balanced with all planning policies to reduce travel distances, optimize reuse of waste heat, and optimize potential on-site energy generation. The preceding citations demonstrate compliance with this criterion. Staff Report: Proposed Amendments Concurrent Rezo, ' ,~~vntown Refinement Plan Diagram and Text. and ~ ' :lgram Amendments 18 . Conclusion The preceding findings demonstrate compliance with statewide goals and consistency with applicable policies of the Metro Plan, i.e. this action does not make the Metro Plan internally inconsistent. The cited Metro Plan policies also provide a direct indication of how this action has been expected to occur for some time by specifically identifying the application of nodal development in Downtown Springfield. The criteria of approval for Metro Plan amendment are satisfied. Refinement Plan Amendment - Criteria and Findings Article 8 of the Springfield Development Code contains the general provisions for refinement plan text and diagram amendments, the method of review and the criteria of approval. Section 8.030 states: "In reaching a decision on these actions, the Planning Commission and the City Council shall adopt findings which demonstrate confonnance to the following: (1) The Metro Plan; (2) Applicable State statutes; (3) Applicable statewide Planning Goals and Administrative Rules." . Criterion (1) Conformance with the Metro Plan Amendment of the Downtown Refinement Plan diagram is subject to policy in the Metro Plan and procedures in the Springfield Development Code. Chapter IV Plan Amendments and Refinements, Metro Plan, contains the following policies: "9. The three metropolitan jurisdictions shall jointly develop and adopt Metropolitan Plan amendment application procedures and a fee schedule. 12: All refinement and functional plans must be consistent with the Metropolitan Plan, and should inconsistencies occur, the Metropolitan Plan is the prevailing policy document." The City of Springfield adopted the following relevant Metro Plan amendment procedure: Section 7.110(4) of the SDC: . "RELATIONSHIP TO REFINEMENT PLAN OR FUNCTIONAL PLAN AMENDMENTS. When a Metro Plan amendment is enacted that requires an amendment to a refinement plan or functional plan diagram or map for consistency, the Metro Plan diagram amendment automatically amends the refinement plan or functional plan diagram or map if no amendment to the refinement plan or functional plan text is involved. When a Metro Plan diagram amendment requires a refinement plan or functional plan diagram, or map and text amendment for consistency, the Metro Plan, refinement Plan and functional plan amendments shall be processed concurrently." Staff Report: Proposed Amendments to Metr< Concurrent Rezoninb .yn Refinement Plan Diagram and Text, and , 1 Amendments 19 . The amendment of the Downtown Refinement Plan diagram in the Mixed Use Area to Nodal Development Mixed Use must occur to be consistent with the Metro Plan. The proposed refinement plan text amendments can be placed into the following three categories: 1. Update of factual infonnation (Purpose of the 2001 Update; Proposed Projects and Future Projects; Assets and Liabilities; and Future Planning Element); and, 2. Update of policies (Land Use Element; Access, Circulation and Parking; Economic Development Element; Design Element; and Public Spaces Element). This first category is included in the refinement plan for purposes of continuity; the original text had this inforn1ation, but the original is now 18 years old and circumstances have changed. Nothing in this updated infonnation suggests an inconsistency with Metro Plan policy or would constitute an action contrary to Metro Plan policy. The majority of this is only applicable to the Metro Plan by virtue of its appearance in the refinement plan. This infonnation is not specifically unresponsive to the test of Metro Plan consistency, but there is not much here to compare since it does not rise to policy or implementation. The proposed and future projects are consistent with Metro Plan policy regarding bike and pedestrian improvements in nodes (Policy FA, F.l1, F.13, F.14, F.22, F.24, F.26 F.27 and F. 28), with Willamalane's Comprehensive Park Plan guidelines (an adopted refinement of the Metro Plan); with policies #18, #19, #20 and #21 of the Enviromnental Resources Element; and with policies #2, #3, #4 and #5 of the Willamette River Greenway, River Corridors, and Waterway Element. . The second category of text amendment includes polices intended to implement the refinement plan, The first of these policies are general in nature but direct action to encourage mixed use development through diagram amendment and zone change to MUC and MUR. This is consistent with the Metro Plan as described on pages 16 and 17 of this report. The next policy supports civic uses in the downtown, particularly along A Street. As this constitutes one of the sought after uses within the mixed use enviromnent (office) it is consistent with the plan policies on pages 16 and 17 of this report. The Downtown Mixed Use Area text describes the application ofMUC andMUR zoning; expands the opportunities for multi-family residential; and recOlllinends design consideration at the edge for purposes of compatibility. These policies are consistent with the Metro Plan policies cited on pages 16 and 17 of this report. . The section on Plan diagram designations identifies the Downtown Mixed Use Area, Parks and Open Spaces and Booth Kelly Development Area. All of the proposed refinement plan diagram changes are consistent with the proposed Metro Plan diagram changes. This language is merely being updated to reflect new tenninology and, in the case of the Booth Kelly Development Area, the Mill Race Restoration Area, which encompasses the fonner Mill Pond site, the dam, and the remainder of the Mill Race to its confluence with the Willamette River. This area is proposed to be zoned Park and Open Space, but may be better suited for a natural resource overlay ?one when such an element of the Springfield Development Code is enacted. In either case neither the Metro Plan diagram nor the Refinement Plan diagram need to be amended as the Mill Race is already on the Metro Plan diagram, and the Booth Kelly site is on both. The Mill Pond will simply be renamed the Mill Race Restoration Area. Stc!!f Report: Proposed Amendments to Metro P Concurrent Re::.oning -.vn Refinement Plan Diagram and Text, and "171 Amendments . . . 20 Access, Circulation and Parking describes existing facilities and those identified in TransPlan but not yet constructed. This infonnation does not represent consistency issues; it merely states the current circumstances. The policies itemize bicycle improvements, multi-use path developments, pedestrian improvements, BRT and the special transpOliation area designation of Main Street. All of these policies are consistent with the Metro Plan policies cited on page 16 and 17 of this report. Additional Metro Plan policies which apply are: F .6, F. 7, F .14, F .18, and F.19. The Economic Element policies seek to solidify the downtown as a good investment becaus,e of the partnerships and the potential expansion of a diverse core of uses, including the new justice center, CDBG investments, the STA designation of Main Street, the Wildish Theater, and a variety of festivals. This is nonnal material for economic land use elements and simply is more specific than the broader language of policies #11, #13, #14, #28 and #29 of the Economic Element of the Metro Plan. The Design Element policies are similar to the economic policies in their relationship to the' Metro Plan. Most of this text is mirrored by the Metro Plan, ifnot literally, certainly in spirit by those policies cited on pages 16 and 17 of this report, and policies #3, #4, #5, #7 and #8 in the Environmental Design Element. The final section of policy regards public spaces. These policies are not all of sufficient impact to rise to a level of equivalency with the Metro Plan, but they do embody the same sort of thematic consistency with the policies cited on pages 16 and 17 of this report, and the previously cited policies in the Environmental Design Element. The preceding demonstrates compliance with this criterion. Criterion (2) Conformance with Applicable State Statutes Most of the state law that applies to post acknowledgment 'amendments is co~tained in the, Oregon Administrative Rules, the last criterion of approval for refinement plan text amendments. There is sO,me guidance in ORS 197 regarding refinement plans, but this is primarily to describe the minimum elements of the refinement plan and the procedure for adoption (ORS 197.200). The Downtown Refinement Plan is an acknowledged refinement of the Metro Plan and includes each of the elements specified by statute. Since the Metro Plan is consistent with applicable state statutes, and this proposal implements the Metro Plan, the proposal complies with this criterion. Criterion (3) Conformance with Applicable Statewide Planning Goals and ~dministrative Rules The preceding evaluation of the proposed refinement plan text amendments' internal consistency with the Metro Plan text demonstrates compliance with applicable statewide planning goals and rules because: 1. The Metro Plan has been acknowledged by the State Land Conversation and Development Commission to be in compliance with all applicable goals and rules; and, 2. The findings of detennination of refinement plan-Metro plan consistency rely upon application of the goals and rules (see pages 5-18 of this report). Staff Report: Proposed Amendments to Metrl COnClll7'ent Rezonin,i '.?wn Refinement Plan Diagram and Text, and .~. Amendments . . . 21 Conclusion The preceding text shows the clear linkage between the Metro Plan and the proposed techniques to implement the Metro Plan embodied in the refinement plan text and diagram. Both plans will can)' site-specific diagrams showing the boundaries of the Nodal Development /Mixed-Use Area of the Downtown Refinement Plan. The refinelnent plan text contains specific policies calling for zone changes to implement the policies of the refinement plan and Metro Plan. The criteria of 8.030 are satisfied. Zoning Map Amendment - Criteria and Findings Article 12, Section 12.030 of the SDC lists the criteria to be used in approving a Springfield Zoning Map amendment: (a) Consistency wi~h 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: (a) Meet the approval criteria specified in Article 7 of this Code; and (2) Comply with Oregon Administrative Rule (OAR) 660-012-0060, where _ applicable. Criterion (a) Consistency with applicable Metro Plan policies and the Metro Plan diagram; The following findings elsewhere in this report establish conformance with this criterion: Goal 2, pages 6-7; Goal 8, page 9; 'Goal 9, page 10; Goall 0, pages 10-11; Goal 12, pages 11-14; and also findings under Refinement Plan amendment consistency with Metro Plan policies on pages 18-21 of this report. Criterion (b) Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development Plans and functional plans; This action will implement the new policies proposed for refinement plan text amendment. The Land Use Element contains the following relevant goals: "Create a Pedestrian and Transit Friendly Downtown. Develop a setting that is conducive to walking, bicycling and transit while providing accessibility to regional automobile and freight networks. Provide safe and walkable streets." "Revitalize the Downtown with New Uses. Create new opportunities for office, commercial, residential, civic, and mixed uses. Encourage high-density uses that are transit-oriented and located within a short walk from Springfield Station." Staff Report: Proposed Amendments to Metr Concurrent Rezoni' 'wn Refinement Plan Diagram and Text, and : Amendments 22 . The Land Use Element contains the following relevant policies: "I. The City shall actively work to enhance the redevelopment and diversity of Downtown by promoting mixed-use development within the downtown blocks, on single or aggregated tax lots, and within individual buildings. Emphasis should be directed towards expanding retail, entertainment and office opportunities and increasing residential uses above ground-floor businesses. " Implementation "The Metropolitan Area General Plan diagram and Downtown Refinement Plan diagram shall be amended to designate the Downtown Mixed Use Area as Nodal Development/Mixed Use, except that the two block area between 8th and loth shall remain Community Commercial." "All plivate property within the nodal development mixed-use plan diagram designation shall be rezoned to Mixed-Use Commercial (MUC) except existing multi-family residential use shall be rezoned Mixed-Use Residential (MUR)." "All publicly owned property within the nodal development mixed-use plan diagram designation may be rezoned to Public Land and Open Space (PLO)." Downtown Mixed Use Area .' "1. The Mixed Use Commercial zoning district shall be applied within this area to allow for a mix of commercial, office, residential and open space uses. Design and development stan4ards shall promote a minimum of2-story buildings with pedestrian-friendly design and placement. The Mixed-Use Residential zoning district shall be applied within this area to property currently' occupied exclusively by multi-family residential uses. The Public Lands and Open Space zoning district may be applied within this area to all land owned by the City of Springfield, , Willamalane Park and Recreation District, the Springfield Utility Board or other governmental entities located in the Downtown Mixed-Use Area." . 2. Multi-family residential shall be allowed as the sole use of a building or as one of several uses pennitted within a mixed-use building or development area. Multi-family housing within 3 blocks of Springfield Station shall have a minimum density of 12 dwelling units per acre. Residential use within a mixed-use building is exempt from this density standard." , The preceding citations demonstrate the proposed zoning is consistent with the applicable refinement plan. This criterion is satisfied. Criterion (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. . The downtown has a well established street system, a new major transit facility and all other infrastructure (sanitary sewer, stonn sewer, water, emergency services) necessary to allow mixed-use, nodal development to occur. Additional activities and initiatives pursued in the Staff Report: Proposed Amendments to Metro ,~ - ConCUlTent Rezollin?~ I Refinement Plan Diagram and Text, and , ram Amendments 23 . policies of the refinement plan will be achieved through the budgeting and capital improvement plans of the City, ~UB and Willamalane. This report previously responded to the question of goal compliance for Goal II Public Facilities and Services and goal 12 Transportation (see pages 11-14). This criterion is satisfied. Criterion (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. This report addresses Article 7 criteria on pages 5-17. Each of these criteria is satisfied as detennined by that evaluation. The cited OAR requires a transportation analysis of plan amendments or zone changes that may "significantly affect a transportation facility" by assuring that "allowed land uses are consistent with the identified function, capacity, and perfonnance standards of the facility." This analysis was undertaken and the results are included in pages 11-14 of this report. This criterion is satisfied. . IV. Conclusion and Recommendation of Staff The findings ofthis report address the criteria described in Articles 7, 8 and 12 for approving Metro Plan diagram amendments, refinement plan diagram and. text amendments, and zone changes. the proposed redesignation of the Downtown Mixed Use Area on the Metro Plan diagram and Refinement Plan diagram to Nodal Development/Mixed-Use; the amendments to the refinement plan text; and the rezoning of the Downtown Mixed Use Area to Mixed-Use Commercial, , Mixed-Use Residential and Public Land and Open Space, are in conformance with all applicable standards and criteria. VI. Attachments Attachment A: Plan. Text of Proposed Amendments to Springfield Downtown Refinement Attachment B: Attachment C: Map of Nodal Development/Mixed-Use Designation Map of implementing zoning districts . Staff Report: Proposed Amendments to Metri Concurrent Rezoning Hvntown Refinement Plan Diagram and Text, and :agram Amendments EXHIBIT B . Proposed Amendments to the Springfield Downtown Refinement Plan The following text comprises all of the amendments proposed during the preparation of the Springfield Station Area Plan, subsequent recommendations perfonned by the SSAP _ Steering committee, and additional changes recommended by staffto acknowledge a number of events or circumstances which have occurred in the Downtown since the July, 2001 publication of the SSAP. The first revision is the insertion of the f()lIowing text at the beginning of the .... ....' '-, INTROnUCTIONimmediate1v under Purnose: ,.._._~____.,_______._.._.___.m,,____'_"'__'H"'_' 01 -_.-_...._,;:_........_..._~. Purpose ofthe 2005 Update . The 2005 Update of the Downtown Refinement Plan is derived from the work perfonned on the Springfield Station Area Plan and is intended to update and continue the community's long tenn desire to revitalize Downtown Springfield. The update is motivated by a sense that "the moment is right" for the City to capitalize on Downtown's potentiaL respond to emerging market trends, repair current problems, and facilitate a re-emergerlCe of Downtown as the heart of Springfield. This sense is fostered by the:,!:"';;?,*,,,, .~ ' , , . Development of Springfield Station (the firstsignificant public investment in the downtown in 25 years); / . Purchase ofthe McKenzie The1iterand other efforts by the Springfield Renaissance Development COrPor~Hbn to establish an arts and cultural district; ::" . , Recent civic and business collaboration focused on recruiting a new federal courthouse and othergoye!nmental facilities to the Downtown. . The renovation of the Gerlach Building by the Emerald Arts Association. . The designation of Main Street from the bridge to 10th Street as a Special Transportation Area; . The designation of the Downtown as a nodal development site in the updated TransPlan; . Installation of benches and planter areas to improve "street-scape" of Main Street; . The commitment by St. Vincent de Paul and the City to develop a mid-rise, commercial-residential mixed-use development at 6th and Main; . Re-establishment of Springfield Downtown Association; . V oter approval to construct a 26 million dollar iustice center between Pioneer Parkway and 5th on A Street; and . The adiacency of Glenwood, recently voter approved as an urban renewal district. . Commitment by the Army Corps of Engineers to a roughly $5M Mill Race/Mill Pond Ecosystem Restoration proiect. . Consolidation by the Chambers Corporation of a number of properties on Mill Street adiacent to Island Park for redevelopment. . . f ~ c j \ ..~--'] . The existing first t\\'o paragraphs n:main unchanged for historic context. A new third paragraph is proposed 10 ideqtify the contribution of the Station Area Plan project to this update: This update of the Downtown Refinement Plan is significantly influenced by the outcome of the Station Area Plan project. That effort began in 2000 and concluded with the publication of the Springfield Station Svecific Area Plan in July, 2001. Included in that plan were a number of recommendations for new and revised policies: additions and deletions to the projects lists: and replacement of existing conditions descriptions with more contemporary lang;uage. . The project participants included Silva Sullivan, Susan McCallum, Michael Buckridge, Ralph Smeed, Beto Rubio and Don Moloney, Downtown business/property owners: Bill Carpenter and Sean Wilson, Planning Commissioners; Mark Pangborn, L TD: Tom Draggoo, Springfield Chamber of Commerce; Dennis Shine, Community-at-large: Tom Boyatt, ODOT: Elizabeth Ledet, Oregon TOM program: and Mark Metzger and Cynthia Pappas, Springfield staff. The final paragraph under 11:!.rill~~.Q is deleted and replaced with the following: . The Plan boundaries encompass the area bordereCl by the Willamette River on the west; the Washburne Historic District and the East KeUyButte Neighborhood on the north, 10th Street on the east and the Mill Pond and Booih.,.Kelly Mixed Use Area under City ownership on the south. Lnder the secti"li1 Pn:\'hyus Pbnnin~ < " it is recommended that this section title be changed to Relevant Planning Activitv inthe Downtown Area and that the follo\ving text be added as a tinal paragnlph: Since adoption of the Downtown Refinement Plan in February, 1986, several significant planning activities have occurred which have a direct impact on the implementation of the policies in this Plan. These activities include adoption of the Booth-Kelly Mixed-Use District in July, 1986: adoption of a Concept Plan for Booth-Kelly in 1989: the update of the Metro Plan, adopted in ApriL 1987: the Station Area Specific Plan, completed in July, 2001: adoption of Trans Plan in July, 2001: adoption of Article 40 Mixed-Use Zoning Districts and Article 41 Nodal Development Overlay District in 2002, and adoption of Willamalane's Park and recreation Comprehensive Plan in November, 2004. PROPOSED PROJECTS In this ,section, revise the list of Proposed Proiects by distinguishing the completed projects belo\v from the remaining proposed projects. In addition, Map #1 shall be amended to delete completed projeCTS. . · So. A Street Resurfacing and · Pioneer Parkway Bike · Street Tree Program - · City Hall Main Entrance " .,' . restoration improvement s · Art Alley Program - artist competitio n for next mural · Street tree program, including regular , maintenance . South 5th streets cape Improvemen ts · On-:going clean up program for the Downtown · BRTon Pioneer Parkway · Justice Center Redevelop- ment Project . · Accent pavmg on sidewalks Booth- Kelly/Mill Pond Natural Area Park; Develop a natural area park, with trailhead facilities; nature trail, and interpretive signage, at the Booth-Kelly site adjacent to the current Mill Pond (DES 2b; BK-5) ASSETS AND LIABILITIES!:'t\th W The SSAP recomrl1cnds the ineIus linf a paragraph recognizing the methodology undertaken in the SSAP to create a set of goals for the Downtown Plan (The goals are to be included as the first section of the Land Use Element). Delete th~' last paragraph of this section and replace with the following: During the preparation of the Station Area Specific Plan the Steering Committee , examined the strengths, weaknesses, opportunities and threats present in the Downtown. This work concluded with a recommendation to include a number of new planning goals to help guide the land use decision-making process. The goals are found in the Land Use Element of this Plan. INVOLVEMENT OF DOWNTOWN ORGANIZATIONS This l)a2'c is I,mrdv historic and somewhat miscl1araderized bv its title. The SSAP was ~' . L .I ' - - . ' , .' - " ~ u.ndertaken \\'itl1 broad citizen involvement, p1'ope(1)7 owner participation and agency suppoli. It is not necessary to delete this page, but preserving is not responsive to the amendments recohlmended by the SSAP. WiUamalane Park and Recreation District has requested the t()llovving revision to the existing description ofthe District if this section remams. . . Willamalane Park and Recreation District The Willamalane Park and Recreation District was created as a special service district for planning and implementing parks and recreation services in Springfield, including the Downtown. Willamalane policy is established by its elected Board of Directors. Willamalane's administrative offices are presently located in the Downtown, as is a recreation center (Memorial Building, Memorial Community Center) and senior center (Willamalane Adult Activity Center) that they operate. Island Park, on the Willamette River on the western edge of the Downtown, is a riverfront community park of great importance. Access to Dorris Ranch Living History Fann, about on mile to the south of the Downtown, is through the Downtown via South Second Street. This 258 acre park is a recreatiomil, historical, and open space resource of regional significance which has the potential to draw additional tourists to and through the Downtown. LAND USE ELEMENT ) . This e1emcntis proposed t~:H' amendment to i a set of goals recommended in the 8SAP. The current \i.ersion of the Do\vntown contains no goals; just policies and implementation measures, The new goals are aclll~'l~able, action-oriented and, to the extent that existing policies are respt . if.:.', paired with applicable policies. Where existing policies have become obso time, 8SAP recornmends revisions to reflect direction l.)rovided by the neVi Q:C) Sta!1 this section \'/ith J()llowin2: introduction ~ ~ ~ and goal set: GOALS The following goals embody the spirit. optimism and commitment downtown property owners, businesses and community organizations have ascribed to their vision of Downtown Springfield. These goals are deliberately achievable and intended to recognize the value of enduring public-{)rivate partnerships. Create a Pedestrian and Transit Friendlv Downtown. Develop a setting that is conducive to walking, bicycling and transit while providing accessibility to regional automobile and frei~ht networks. Provide safe and walkable streets. Preserve the Past. Enhance the downtown's future character by preserving the best of its past. Promote appropriate in-fill construction and historic preservation of the existing buildings. . . . ' . Reconnect to Kev Natural Resource Features. Connect the downtown with the Millrace and Island Park and provide opportunities for appropriate downtown uses adiacent to these areas. Alive After Five. Encourage evening activity in the downtown with dining, cultural and entertainment opportunities for all ages. Increase housing development in the downtown to generate the 18 to 24-hour city. Revitalize the Downtown with New Uses. Create new opportunities for office, commercial, residential, civic, and mixed uses. Encourage high-density uses that are transit-oriented and located within a short walk from Springfield Station. Ensure Adequate Parking. Provide parking that supports a vital downtown.) Create Civic Gathering Places. Create great public spaces, both large and small. Consider creation of a town square. Identify Catalvst Pro;ects. Identify proiects that will spur growth in the downtown, including improvements that can be successfully acsomplished in the short tenn. __,__.~~"G;, Create Downtown Partnerships. Collaborate wit~ L:ReTransit District the Springfield Renaissance Development Corporation, and other groups to coordinate efforts and build community support. . Establish a Positive Identitv for the Downtown. Work with downtown business interests and the Springfield community to-foster a positive identity and sense of pride for the downtown. l' '% - 's':;-\\;:,'l'~)y Develop the Downtown as the Gatewav to Springfield. Work to achieve a visual impression in the Downtown that reflects well on the rest of the City. , POLICIES A. GENERAL, Policy #1 and the implcrnentation measure should he revised. Policy #2. may be deleted as redundant; i..-1Ue z(Hling permits secomJ-story residential development and thetv1etro Plan contains several '1'l"oUcies encoura2im! hi2:her densitv residential deve1o,'pments near .....J "-' "-/ .: , and adjacent to dovvntovvns. 1. The City shall actively work to enhance the redevelopment and diversity of Downtown by promoting mixed-use development within the downtown blocks, on single or aggregated tax lots, and within individual buildings. Emphasis should be directed towards expanding retaiL entertaimnent and office opportunities and increasing residential uses above ground-floor businesses. . . ' . Implementation The Metropolitan Area General Plan diagram and Downtown Refinement Plan diagram shall be amended to designate the Downtown Mixed Use Area as Nodal Development/Mixed-Use. except that the two block area between 8th and loth and the block between ih and 8th on the north side of A shall remain Mixed-Use Commercial. All private property within the nodal development mixed-use plan diagram designation shall be rezoned to Mixed-Use Commercial (MUC) except existing multi-family residential use shall be rezoned Mixed-Use Residential (MUR). Property outside the nodal designation but within the Downtown mixed- use area may be zoned either Mixed-Use Commercial or Community Commercial. All;UbliclY owned property within the nodal development mixed-use plan dia am designation may be zoned Public Land and Open Space (PLO). 2 Civic and governmental uses serving the Springfield community shall be encouraged to locate in the Downtown area. Within the downtown. governmental uses. including City Hall. the JusticeG?'ell.terand iail. the library. Willamalane and SUB offices. shall be encouraged to locate and expand along A Street. Other civic uses or public places. such as theaters. parks. museums. plazas and other sites of public interest. should be dispersed throughout downtown to encourage walking from place to place. provide visual contrast to the built environment. and compliment adioining businesses. Delete eX1stin~~Po]jcv#2 and renlace \v1th the f()ll. - ~ ~' ,~ . In theeventthe Council chooses to incorporate any or an of the maps in the SSAP into the Downtown Refinement Plan, such addition should include the fol1o\ving policy un) and roap description: ~ ~ The Plan contains a number of maps that combine to provide data on existing circumstances. . identify focused development areas. and designate appropriate zoning districts. The Specific Area Plan Map is an illustration of potential land uses and improvements that. if realized. would implement the overall vision for a vital downtown. It is a "concept map" that is intended as a guide. not a substitute for the-Plan Diagram. . The Anchor Destinations map illustrates locations for selected uses and the connecting links between them. This map identifies key sites with unique attributes or opportunities that would strengthen the Downtown's economic diversity. The inclusion of the "North Borden" site is exclusively for visioning purposes and should not be construed as a commitment by the City to amend the .' . boundaries of the Downtown Plan or to affect a change in use or zoning of this property. The policies and iurisdiction of the Downtown Refinement Plan do not apply to the "North Borden" site. The Plan diagram is the visual embodiment of the Plan text. The Plan diagram is site specific and, in concert with the Plan policies, should be utilized in detennining Plan compliance of proposed land use actions, pennitted uses and infrastructure improvements. DOWNTOWN MIXED USE AREA AND NODAL DEVELOPMENT OVERLAY . The SSAP recommends deletion of all of the existing policies under this section and replacement \vith the following new policies: . 1. The Mixed-Use Commercial zoning district shall be applied within the nodal overlay to accommodate a mix of commercial, office, residential, and open space uses. Design and development standards shall promote a minimum of 2-story buildings with pedestrian-friendly design and placement. The Mixed-Use Residential zoning district shall be applied within the no'dal overlay area to property currently occupied exclusively by multi-family resid'eh!iaI uses. The Public Lands and Open Space zoning district may be applied within tl1is.,area to all land owned by the City of Springfield, Willamalane Park and Recreation District and the Springfield Utility Board. Commercial property inthe'E>g~l1town Mixed Use boundary, but outside the nodal overlay may be zoned Mixed"Uie"'Commercial or Community Commercial. }f 2. Multi-family residential shall be allowed as the sole use of a building or as one of several uses permitted within a mixed-use building or development area. Multi- family housing within 3 blocks of Springfield Station shall have a minimum density of 12 dwelling units per acre. Residential use within a mixed-use building is exempt from this density standard. 3. The SSAP Concept Plan shall be used as a guide to encourage specific uses and improvements in this area (e,g. the siting of civic uses). (This policy is unnecessary if the Concept Plan is not illduded with these amendments.) 4. Developments along edges of the Downtown Refinement Plan area should include design and development features that promote compatibility and transition to adiacent uses. . 5. At the time of a Zoning Map amendment to a specific mixed use zone permitted within the Downtown Mixed Use area, the presence of any lawful use that would then not be permitted within that zone shall be considered a pre-existing pennitted . . . use. This use may continue or expand, regardless of ownership transfer, unless abandoned for 6 months or more as specified in Springfield Development Code Article 5, Non-Confonning Use. ' c C. BOOTH-KELLY DEVELOPMENT AREA TheSS;\P recommends two changes to this section: deletion of Policy if I; and addition of "Regional destination uses (e.g. Regional Arts Center and Campus)" to the use list in Policy Additional changes to this section are ncccssar:;1 to reflect improvement projectsfc)r the Mil1 Race and Mill pond, The Army Corps of'Engineers awarded the City several grants to restore the Mill Race to its historic character, including tbe removal of structures that created the MillPond, uncovering downstream reaches, restoring native vegetation, and ilnproving public access. References to the MillRace and MiH Pond in this section \NiH be edited to recognize these changes approved by the City Council subsequent to the adoption of the Booth-Kelly conceptual plan. Texrhom this section of the refinernen1 plan not proposed fC}f amendment appears as (nochangc), . 1. The Booth-Kelly Development Area (BKDA),as depicted on the Downtown Refinement Plan Diagram, generally indl~d~~the area lying directly adjacent to and south ofthe Mill Race Restoration Ar~a (~'s\~escribedbelow). 2. (no change) . / a. Redevelopment ofthe site s~o:ql~ be sensitive to the natural and historic features of the site, particulatl?hle Mill Race, Mill Pond, riparian vegetation and forested slopes;y/ b. Facilitate ecosyst~mr~~toration and long-term protection of restored ecosystem functib~s within the Mill 'Race Restoration Area, which is described and.addressed in Section D below. "<;1' c. (no change) " d. (no change) e. Consider providing for the eventual uncovering or relocation of the remaining enclosed portion of the Mill Race consistent with the overall plan for the Mill Race ecosystem restoration, and associated public access and recreational benefits, f. (no change) g. Include a master stonnwater quality and quantity management plan for the site that achieves the objectives of: ' i. eliminating discharges of stormwater to the Mill Race or other public stormwater conveyance facilities that do not meet water quality standards; . ii. managing all stonnwater flows on and through the site in a manner that does not require additional new constructed outfalls to the Mill Race; iii. preventing erosion and sediment movement; and , iv. protecting the ecosystem functions and benefits within the Mill Race Restoration Area. Minimize the effect and rate of surface runoff into the Mill Race and Mill Pond site. . " . 3. (no change) 4. Development within this designation bordering the Mill Race Restoration Area shall comply with the following policies and must generally support fulfillment of the obligations ofthe City to maintain the functions and benefits of the Mill Race Ecosystem Restoration Project jointly undertaken by the City and the U.S. Anny Corps of Engineers, as well as the City's obligations under the Clean Water, Endangered Species, and Safe Drinking Water Acts. a. Pennitted uses, developments and property management activities within this designation must not generate levels of light, noise, pollution or other negative impacts that are deleterious to the ecosystem functions within the Mill Race Restoration Area. b. Vegetation within the Mill Race Restoration Area must be protected and managed for the purposes of protection of ecosystem functions and benefits. ,Invasive or nuisance plant species may be removed, however natural or introduced vegetation for the purposes of providing wetland, _ stonnwater, riparian or other ecosystem functions shall be preserved. c. Public access to the Mill Race and associated recreation and educational facilities shall be increased over time, in a manner consistent with , protection of restored ecosystem functions as security concerns are addressed.J'\j "'~: )\ d. Screening and buffering of land uses ancl..their impacts adjacent to the Mill Race Restoration Area may be required. .f e. All out door storage of materi,,:l~: chemicals, and any substances that have potential to leach pollu.!":!2-ts fq:,ground or surface waters shall be covered, and appropnate contalUpi~l},!. rrlUst be provided. , f. Stonnwater shall be ma:tl~&~(r on-site, including, as needed, an appropriate combination of the constrUction and mairitenance of stonnwater filtration, detention and/or retention facilities, constructed stonnwater management wetlands or ponds, and installation of mechanical stonnwater pretreatment devices, to minimize discharge of pollutants and peak flows to the Mill Race and/or the public stonn drainage system. c 5. The City and Willamalane shall work cooperatively with the Anny Corps of Engineers to complete the planned Natural Area Park at the north edge ofthe current Mill Pond, to include trailhead facilities, nature trail, and interpr~tive slgnage. . D. Mill Race Restoration Area . Under the authority of Section 206 of the Water Resources Development Act the U.S. Anny Corps of Engineers (Corps) has concluded that the Springfield Mill Race/Mill Pond complex will benefit from restoration of the ecosystem,between the Mill Race inlet to the Booth-Kelly crane shed. With the Downtown Refinement Plan Area the Mill Race Ecosystem Restoration project will consist of removal of the existing dam at the Mill Pond, replacement of the Mill Pond with a flowing channel, development of three small seasonal ponds, and riparian habitat within the footprint ofthe Mill Pond, and development of educational and recreational improvements, including a trailhead, nature .' . , trail system and an informational/interpretive kiosk, and interpretive signage, adjacent to the south bank of the Mill Race, east of the crane shed. The cost of the ecosystem restoration is being shared between the Corps and the City. Willamalane is participating in the cost of the educational/recreational improvements, and will operate the Natural Area Park for public enjoyment. Although the Corps supported project does not extend downstream of the crane shed, the lower reach of the Mill Race was recognized as a "transportation corridorforfish and wildlife" in the project field survey report. In order to fully comply with the Clean Water, Safe Drinking Water and Endangered Species acts the City must take responsibility for improvements and protection of the entire Mill Race system, not just the part covered by the Corps project. Thus, riparian habitat, water quality and drainage improvements are anticipated for all publicly owned property adjacent to the Mill Race. Accordingly, this plan identifies a separate Mill Race Restoration Area, to encompass those areas within the Downtown Refinement Plan Area which are subject to the constraints applicable to maintain the b~nefits of the ecosystem restoration project. . 1. Mill Race Restoration Area: The Mill Race Restoration Area shall include the , Present or future course ofthe Mill Race, the site oftheMill Pond, from top of Bank and a 50 foot regulatory buffer around each, from the point where the Race enters the Willamette River to,theeastern boundary of the Downtown, Refinement Plan (Map #9). It should:1?fnoted that the City is obligated to provide-a 100 foot publicly managed B~ffer area in all areas that are City- owned as of the 2005 signiI}g of the Cooperative Project Agreement with d":';,,--,__~-: the Corps. In the vicinitY'Qfthe southwest comer of the current Mill Pond . ',-.,.:>\ _.-,_,l~:,:.{;j;:;L:\::/ site, the southern boundary'ot!he Area is located at the boundary of the . leasehold presently held by Gunderson Rail Car Products. To the east of that leasehold the southern boundary is the property line of property owned by the City of Springfield. 2. The Mill Race Restoration Area will be managed by the City to comply with its obligations to maintain the functions and benefits of the Mill Race Ecosystem Restoration Project. 3. Within the Mill Race Restoration Area the City may develop additional policies to support compliance with the City's obligations under the Mill Race Ecosystem Restoration Project. Should those policies result in codes or zoning changes which impact the Mill Race Restoration Area, this Refinement Plan shall be amended accordingly. The SSAP recommended creating a nev,,' section titled the Borden Redevelopment Area. -rbe staff is not reconlmellding the expansion of the Do\-vntovvn Retinernent Plan boundary to include this area; theref()re this section is not relevant to the Refinelnent Plan. (See SSA,P Plan Report). If the Council concludes that this arca should be brought . . - iuto the boundaries of the Refinement Plan, staflrecommends that not occur until the property owners have had an oppcH'tl.mity to participate in such a planning cftCJrt . " . . . PLAN DIAGRAM-DESIGNATIONS The SS/\P recommends updating most of Hiis section (no charige to "Government" or "IIeavy Industrial") to read as folIo\vs: Parks and Open Space This designation includes existing publicly owned metropolitan parks, regional scale parks, and publicly owned areas of significant natural vegetation. The millrace is included because it is intended as an important open space element of the downtown. Downtown Mixed Use and Nodal Development Overlay This designation encourages a mixing of compatible uses; including residential. commercial, office/professional and urban open-space. Borden Redevelopment Area This description is unnecessary if the Council Refinement Plan area. not expand the boundary of the This designation encourages the long-tenn redevelopment of the Borden properties. The area north of the railroad tracks is iritehdea to have an office/civic-based mix of uses. The southern area is intended to be'ariver-oriented mixed use neighborhood. A ro riate ublic access to ~andalon the river should be rovided. Booth Kelly Development Area;;;Fl This designation includes the following general uses: all campus industrial, office, light-medium industrial, tourist commercial, service and retail commercial. medium density residential (minimum 12 dwelling units per acre), parks and recreation; educational facilities, regional destination, other uses compatible with a conceptual development plan and with other criteria outlined in the Booth-Kellv Development Area policies. . ACCESS, CIRCULATION, PARKING The SSAP recornmencls updating an ofthe introductory text to introduce rnore current thinking on multi-modal options: recognize the completion of some significa.nt projects; and repeat the need to provide parking solutions for Dovvntown's customers. AU of the text policies andimplcmentation measures inth1s element are ckleted and replaced 'vvith the following: ," . This element looks at access, circulation. and parking for all modes of travel to and through the Downtown. The intent of this element is to identify opportunities to create or improve the systems used to move people and goods efficiently, to recognize the important role parking plays on the success of Downtown endeavors, and to emphasize the key significance of a safe and inviting pedestrian environment. The major access routes to the Downtown are Main and South A Streets and Pioneer Parkway East and West. The Main-South A couplet is the major carrier of east-west traffic while the Pioneer Parkway couplet performs the same function fornorth-south traffic. Additional principal elements of the Downtown's grid system of streets include Mill Street, 5th, ih and lOth as secondary north-south conduits, and A and B Streets as east-west collectors. Although the remaining streets in the grid are classified as "local." ,they. along with the network of alleys throughout most of the mid-blocks; provide excellent access and direct line of travel for inhabitants, visitors and customers of the Downtown, regardless of selected travel mode. A number of positive changes have occurred to this system since the adoption of the Downtown Plan in 1986. Among the more noteworthy are: . ,__"<0., Construction of "bulb-outs" on Main and South A~4;;\ Construction of separate left turn lanes for Mill an'd PIoneer Parkway East; Right turn lane and entry improvements on Fifth into Bboth-Kelly Center; Relocation of Springfield Station to South A between 4th and Pioneer Parkway East; Commencement of Bus Rapid Transit along Main-South A; Completion of Environmental Impac{$t~tem"ent for BRT on Pioneer Parkways; . . . ')"-"""<'>."::::<:~":>-:'-<:~. . DeSIgnatIOn by ODOT of Mam Street as,~, SpeCIal TransportatIon Area; Construction of a bike/ped path in Pione~r Parkway median; and Pedestrian crossing of South A to new Station. As beneficial as these improvements have been, more work needs to be perfonned to improve the pedestrian environment. The City has begu~ a project-along Main Street to place benches and planters at regular intervals. This same effort should be expanded along the north-south streets and along both "A" Streets. Pedestrian level lighting also is proposed for Main Street and should be expanded in the same manner as the street furniture program. . Bicycle opportunities are less than desirable as the Downtown currently has no designated, striped east-west routes. Sharing sidewalks with pedestrians or streets with cars does not engender this efficient travel alternative. Several bikeway projects have been identified in the Springfield bicycle Plan. Willamalane's Park and Recreation Comprehensive Plan and TransPlan (TP), including TP Project 830, Main and South A. striped lane, Springfield bridges to east ugb; TP Project 840, Mill Race Path, multi-use path, S. 2nd to S. 28th; and TP Project 837, striped lane, Mill Street. South A to Fairview Drive. . All of these projects are "unprogi"ammed" that is, no source of money was identified to construct these improvements therefore they are on indefinite hold. The City should establish a high priority for these projects to enable funding and construction in '. . . . the near-tenn. As an additional measure to encourage bicycle use. new development of all types shall provide secured bicycle parking. Off-street parking remains a real and perceived issue for downtown merchants. Although there are several thousand spaces in the Downtown Mixed Use area. many are occupied by downtown employees. many are restricted by pennit only. and the larger lots are not close by to businesses most in need. The City continues parking enforcement of all on- street spaces or publicly owned spaces in this area. but the two hour time limit is not proving to be an effective deterrent to prolonged and non-business use. Notwithstanding all of the benefits that will accrue from an improved pedestrian environment. few downtown businesses can survive on a customer-base derived solely from foot-traffic. The City and its downtown business partners need to come to griPs with this challenge and arrive at some mutually agreeable solutions. POLICIES 1. The City shall pursue funding of identified bicycle and pedestrian improvement projects within the Downtown area to place these proiects in the "Programmed" category in TransPlan. . 2. The City and Willamalane shall work cooperatively to obtain easements or other instruments to enable construction ofpark-to':p~r~'Inulti-use paths. including Island Park to Dorris Ranch; Dorris Ranch to' Clearwater Park':",and the Mill Race from the Middle Fork of the Willamette to the confluence at the S rin field brid es. 3. The City shall evaluate the distributlO!l:,"o ..... public off-street parking in the Downtown and prepare a strategy to address the equttable balance of these resources. 4. The City shall consider formation of a Downtown Association to partner with the City on parking solutions and enhancing the pedestrian experience. 5. TheCity shall work with L TD to facilitate the success of the BRT system. encourage local businesses to participate in L TD ridership programs. and co-sponsor Transportation Demand Management techniques. 6. The City shall work with ODOT to take full advantage of the opportunities presented by the designation of Main Street as Special Transportation Areas and will pursue a similar designation for South A Street. 7. The grid street system within the Downtown Refinement Plan area, including streets and alleys. shall be maintained to the greatest extent practicable. except where issues of public safety and security may become a concern for public buildings. . 8. The City shall study. and where appropriate. implement a plan to improve auto. pedestrian. and bicycle access to the Booth-Kelly site and the Mill Race. ." . . . ECONOMIC DEVELOPMENT ELEMENT Tbe SSAP makes several recommendations re2:ardin2: this element indudine. revising the '-"' "-"' '- .-"' introduction and making the policiC's more conternporary, All ofthe existing text policies and irnp1ementation measures of this element are deleted and replaced 'vvitb the f{IUOv;ing: Economic Development of the Downtown requires a partnership of public, semi-public and private interests working for the same end results. The City cannot dictate that development and redevelopment occur within a prescribed time line or without consideration of the market or financing requirements. The private sector cannot expect the city to ignore its standards and city-wide responsibilities or provide unlimited financial assistance. The nexus of public-private efforts in Springfield and most other downtown's throughout the state occurs through collaboration and coalition of government and business, neighborhood advocacy and capital improvement, private investment and public incentives. This partnership needs to be maintained and strengthened, whether through an affiliated group of businesses, chartered neighborhood association or improvement district is not as important as simply getting it done.>Ror its part, the city must be receptive to suggestions, and must be alert to the opPo!iunities gained and lost through decisiveness or indecision. "0,\; .f The City wants the downtown to succeed et6nolnically, socially, and aesthetically. The Plan includes a coordinated approach, throughcotnpatible policy direction, to achieve this success. The Land Use element contains:ta new subsection of 11 goals intended to guide city efforts at Downtown,Ee'ti1ta!ization; new policies that expand the variety of uses and development options,"mcl~d~i1g an emphasis on multi-family residential; and new implementation measures thatZc01~mit City resources to assist the private sector in achieving economic vitalitx. The Access, Circulation and Parking element further commits the City to actively pursue bicycle, pedestrian and transit improvements within and through the Downtown to enhance the shopping and living experience; to work with businesses to create solutions for off-street parking issues; and to work with Willamalane and L TD to improve and expand upon travel mode opportunities. The downtown remains the true heart of the city, and an economically vital downtown is a strong indicator of the overall health of the city. POLICIES I. The City shall solicit comments regarding the reconstitution of a "Downtown Association" and shall make a commitment in the near-tenn to a decision on this matter. ~. . . . 2. The City shall continue its partnership with ODOT regarding the Special Transportation Area designation of Main Street and the advantages this presents to adjacent businesses. 3. The City shall maintain a variety of strategies and funding sources as incentives to development and redevelopment of the Downtown. This should include, but not be limited to: state revolving loan funds; Industrial Development Revenue Bonds; Oregon Business Development Fund; state lottery funds; CDBG grants and loan programs; tax increment financing; local improvement districts; economic improvement districts; and, special assessment districts. . 4. As the design and construction of the Justice Center evolves, the City shall work with nearby businesses and property owners to take advantage of opportunities to develop sites or structures to accommodate the various support uses that are likely to seek this proximity. 5. The City shall support Willamalane's efforts to develop parks and open spaces in the . Refinement Plan area consistent with the Willamalane Park and Recreation Comprehensive Plan. 6. The City shall maintain City Hall availabilityias a meeting place for community groups and events. ' ; 7. The City shall support efforts to attract shoppers to the Downtown, including but not X^ '''__ *~~, limited to s ecialt events such as festiva1s and arades and recurrin activities such as "fanner's market." 8. The City shall support the retention oflocal business and the relocation of new business to Downtown. 9. Continue to support and promote efforts by the Museum and the Library to stage events that attract children and young adults to the Downtown. 10. Continue to support the completion of the Wildish ~heater. DESIGN ELEMENT The SSAP recomrnends a complete revision of the introductory text and an emphasis in the revised text on the ilnportance of pedestrian and bicycle oriented design to the success of Downtown's revitalization. In addition, the policies should be updated as needed. An of the existing text, policies and iml)!ementation mea.sures in this element are deleted and replaced with the f()llowing: Perhaps more than any place in a City, people know intuitively when they are "downtown." There is a physical. historical and personal presence in downtowns that .. . . . . . cannot be duplicated in suburban shopping malls, large discount stores, campus office parks or residential monocultures. This is not to say these other features of cities are not important or do not add their own value to a community, because they do. But they are such a common and ?redictable feature of the landscape~ it is hard to distinguish one from another. So it is ironic that the very sameness of these places has ledto the demise of downtowns, the only place in most cities that offers a different and unique environment. For a downtown to at least try and recapture its former glory as the "central business district" it must rely on its superior location, its more intimate proximity of businesses to customers, its usually eclectic mix of uses, its history, its architecture and its potential at every turn to be a place that simply does not exist anywhere else in town. The sum of all these parts constitutes the design of the downtown, and the best way to experience and appreciate this design is by being able to walk from place to place in safety and comfort. In order to preserve what still works, promote what will work better, and reestablish the Downtown as the City's principal destination requires an enduring and equitable public- private commitment. The City has attempted to categorize and itemize its commitment to this goal in the preceding pages of this Plan, including the redesignation and rezoning of most of the Downtown to Mixed-Use. Nodal Overlay. The policies of this element will continue this theme, but will also rely on the business and property owners to rekindle the self-reliance that was so prominent in the DoWl1to\vn's long history of success. POLICIES I. The City shall work to reduce the vi~I"~lutter of signs and poles. Implementation The City shall work with sign companies, the State of Oregon and Downtown property owners to reduce the visual impact of billboards throughout the Downtown area, especially near entrances. This will include the possibility of eliminating billboards, purchasing billboards and transfer of billboards to areas outside Downtown. The City shall attempt to remove two unused signs or poles in the Downtown for each new sign or pole erected in the public-right-of-way. The City shall encourage businesses and property owners to remove unused and unnecessary signs and poles., 2. The City and Willamalane shall continue to develop and integrate the elements of the river. bridge, White Horse, Millrace and Island Park to enhance historic, recreational, and aesthetic values and promote tourism. .' v' . . . Implementation a. Willamalane and the City shall work together with affected property owners to improve connections between Island Park and the Downtown, including exploring the feasibility of developing a pedestrian connection to the park from Main Street. b. The City and Wi11amalane shall work together to complete the construction of the Millrace restoration proiect, including the Booth-Kelly/Mi11 Pond Natural Area Park improvements. 3. Alternative methods oflessening the negative aesthetic character of ov~rhead electric lines in the Downtown area shall be examined and pursued by SUB. This may include: 1) undergrounding new service connections and "clean-up" of overhead express feeders in the near future, and 2) possible undergrounding of all lines in the future. Priorities for this action are as follows: 1 sl - South A Street; 2nd - Mill Street: 3rd - All remaining overhead lines within the Downtown area. Implementation _P":~"';--'v a. SUB shall designate the Downtown arealas.an undergrounding district, and require new development to underground individual service lines. -},. 4. The City shall continue to encourage the;d~;:~lopment and maintenance of "Art Alley." \*;lA\:Gi/ ,'/ Implementation ., '~l&- ;{''fs " 'lf a. Pedestrian improvements shall be provided as public and private funding becomes available, inclu'Oing but not limited to: crosswalks connecting the Alley across streets Weatherproof coverings Plantings and other features to accent entrvways Funding through the City's CIP should be considered. 5. All Downtown groups and agencies shall work together to enhance the character and identity of the Downtown as a place for people. This shall be accomplished by: installing pedestrian-oriented sidewalk lighting. development of plazas and pocket parks improving and maintaining Downtown entrances installing new street trees, planters and furnishings limiting and reducing driveway accesses improving street signs and traffic signals improving pedestrian crossings and walkways .... .i} .t . . . 6. The City shall investigate the feasibility of a Downtown clock. 7. The City shall continue to obtain funding for street furniture. 8. The City shall support efforts by Downtown businesses to make building facade improvements. 9. The City shall consider suggestions from Downtown businesses regarding the use of portions of the sidewalks as temporary seating and display. lO. The City shall work with ODOT to identify and construct the right-of-way design features that are unique to state-designated STA's. ' PUBLIC SPACES ELEMENT Th,c SSAP recommends revising the introductory text by referencing the proposed Main Street Plaza and the Millrace access/park at Springfield Station. An additional policy is recommended identifying these same t\\'o projects: This element identifies areas suitable for development as public space and how such action compliments other efforts benefiting DoJ'iitown. The principal objectives in establishing public space throughout Downtowfl.tlte to provide architectural contrast, enhance the pedestrian experience, and provide o~portunities for outdoor recreation and relaxation. An additional benefit occurs through use of these spaces for community events such as craft fairs. farmer's rrfkk~ts and specialized exhibits. Public spaces do not need to be large or expensive to serve ffie~trumose. The pocket park on Main Street. the Millrace overlook at the Depot. and the fountain in front of City Hall are examples of effective use of relatively small areas. Other areas that should be considered for use as public space include the Millrace adjoining the Springfield Station, portions of the Booth- Kelly site including the planned Booth-Kelly Natural Area Park, the public parking lot adjoining the south side of City Hall. and some portion of the Justice Center development ' area. The continued and expanded use of public buildings for community events is another way of bringing people to the Downtown. Springfield City Hall. Willamalane Adult Activity Center, the Springfield Museum, and the Depot are examples of buildings that provide meeting space for the public and which are strategically located throughout the Downtown. Encouraging outside grOUps to reserve these facilities introduces visitors to the various shops, restaurants and businesses Downtown that might otherwise seldom be considered for patronage by people from out of the area. POLICIES L The City shall encourage the development and use of sites throughout Downtown for displays, exhibits, festivals and other events of public interest. ~ ~ I.) .. . 2. The City and Willamalaneshall continue to explore the creation and development of public space improvements in the Downtown including a Downtown overlook and improved pedestrian access to Island Park, the Millrace, and the historic Bri~gs Ferry landing. 3.. The City shall endeavor to maintain funding for maintenance programs on Downtown streets, sidewalks, and City-owned public spaces. 4. The City, in cooperation with downtown businesses, should identify funding for, design, and construct a new Main Street plaza at the location of the parking lot on the south side of City Hall. The plaza would serve as the primary civic gathering public space in the core of the downtown. The design would explore whether it should be a dual use as both parking and plaza, or be converted to all plaza. The long-tenn vision for this space would include reconstruction of the south side of City Hall to complement the plaza. . FUTURE ,PLANNING ELEMENT The SSAP made no recommendations regarding this element. HO\-vever, its this et1il\t is . intended to make the Downtov:n Rdi.nernent Plan contemporary, the following revisions are recomrnended t{ir the smne reasons of contell'\.poraneousness: " >~<(;~~~"4",3%., . In order for this document to remain responsive t6:;its policies and the forces and events that influence implementation, it is advisable to monitor progress at regular intervals. Of critical importance is the success ofthe'Various partnerships identified in the Plan, including the City and Willamalane, t1f~'Gityand ODOT, and the City and Downtown businesses. If these partnerships are challenged due to circumstances not contemplated by this Plan, it is important to overcome these difficulties through all reasonable means necessary, including amendments to this Plan. . . Policies 1. The Development Services Department shall make bi-annual reports to the City Council regarding progress at Plan policy implementation. Where progress maybe improved through amendments to this Plan, the Council shall initiate those amendments as necessary. Map Arnendments 'fheRetinernent Plan contains a number of Maps, ail of which win require amendments. In addition, the SSAP recommends including the "Anchor Destinations" map and the "Springfield Station Specific Area Plan" map. The f()l1owing changes are recommended: . Map #1 Proposed Projects - update by deleting completed projects and adding new projects. ~f .1 ... . . . Map #2 Existing Land Use - update with uses as of July, 2005 Map #3 Current Zoning Feb 1986 - update with zoning as of July, 2005 Map #4 Plan Diagram - update with new Nodal Overlay Map #5 Off-Street Parking - update to July, 2005 Map #6 Traffic Flow Dec 1985 - update to July, 2005 Map #7 Existing Street Lighting - update to July, 2005 Map #8 Amenities & Public Facilities - update to July, 2005 Map #9 Millrace Restoration Plan - new r.::' .4i "<n, [ Hlu,lt.::;" The Plan includes several pages of tin dings (pg. 39-47). As a component oCthe adoption process of these amendments, the City Council w' lopt specific findings insupport of their action, including any amendrncllts to the Mdto and any rezoning. 'Those findings will be provided at that time. Assumptions No changes are proposed, indud' section; such action \vouldnot l)"'()C'P~"S ';111(1 (t(ll)i~t ':1 nl')s't'-~l".\'nil'vl .t ' "".~._. u l <..~ i e -:. J~ .... ... ....L_j_"-. \- lditions. The Council may choose to delete this is Plan as "assumptions" are not necessary to lent plan amendment. Appemhx No changes arc proposed, including additions, 'rhe Council may choose todelctc this section; such action \vould not affect this Plan as an appendix is not necessary to process and adopt a post-acknowledgment pla:n amendment.