HomeMy WebLinkAboutOrdinance 6373 10/02/2017 CITY OF SPRINGFIELD, OREGON
ORDINANCE NO. 6373 (GENERAL)
AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL
PLAN (METRO PLAN) DIAGRAM BY REDESIGNATING APPROXIMATELY 418.17 ACRES OF LAND
FROM LOW DENSITY RESIDENTIAL (LDR) TO PARKS AND OPEN SPACE; ADOPTING A
SEVERABILITY CLAUSE AND PROVIDING AN EFFECTIVE DATE.
THE CITY COUNCIL OF THE CITY OF SPRINGFIELD FINDS THAT:
WHEREAS, Section 5 14-100 of the Springfield Development Code (SDC) sets forth procedures for
Metro Plan diagram amendments, and
WHEREAS, Section 5.14-115.6.1 a of the SDC classifies amendments to the Metro Plan diagram for
land between the Springfield City limits and the Urban Growth Boundary (UGB) as being Type II Metro
Plan amendments that require approval by Springfield and Lane County only, and
WHEREAS, Section 5.14-125 B of the SDC sets forth procedures for property owners to initiate a Type II
Metro Plan diagram amendment for property under their ownership, and
WHEREAS, the applicant/owner of the subject property initiated a Type II Metro Plan diagram
amendment for nine contiguous parcels as follows:
Redesignate nine vacant, non-addressed parcels comprising approximately 418.17 acres that are
identified as Assessor's Map 17-02-35-00, Tax Lots 3500 & 3604, Assessor's Map 18-02-02-00,
Tax Lots 100, 400 & 401, Assessor's Map 18-02-03-00, Tax Lots 600 & 602, Assessor's Map 18-
02-09-00, Tax Lot 100, and Assessor's Map 18-02-10-00, Tax Lot 100 as generally depicted and
more particularly described in Exhibit A to this Ordinance, from Low Density Residential to Parks
and Open Space (Planning Case TYP417-00001), and
WHEREAS, on June 6, 2017 the Springfield Planning Commission held a joint public hearing with the
Lane County Planning Commission on the proposed Metro Plan diagram amendment request and
concurrent request for Zoning Map amendment The Development & Public Works Department staff
report, including criteria of approval, findings and recommendations, together with the testimony and
submittals of the persons testifying at that hearing, were considered and were made a part of the record
of the proceeding The Planning Commission deliberated on both requests and voted 6 in favor and 0
(none) opposed with one absent to forward a recommendation of approval to the City Council for both
requests, and
WHEREAS, on September 18, 2017 the City Council held a joint public hearing with the Lane County
Board of Commissioners to receive testimony and hear comments on both proposals The City Council
is now ready to take action on these proposals based upon the above recommendations of the Planning
Commission and the evidence and testimony already in the record, as well as the evidence and
testimony presented at this public hearing held in the matter of adopting the Ordinances amending the
Metro Plan diagram and Springfield Zoning Map; and
WHEREAS, substantial evidence exists within the record and the findings set forth in Exhibit B, attached
hereto and incorporated herein by reference, that the proposal meets the relevant approval criteria,
Page 1 of 2
NOW, THEREFORE, BASED ON THE FOREGOING FINDINGS, THE COMMON COUNCIL OF THE
CITY OF SPRINGFIELD ORDAINS AS FOLLOWS
Section 1 The above findings and conclusions are hereby adopted.
Section 2 The staff report and recommendations, applicant narrative, and Planning
Commission findings and recommendation to this Ordinance set forth in Exhibit B, attached hereto and
incorporated herein by reference, are hereby adopted
Section 3 The Metro Plan diagram designation of the subject property identified as
Assessor's Map 17-02-35-00, Tax Lots 3500 & 3604; Assessor's Map 18-02-02-00, Tax Lots 100, 400 &
401, Assessor's Map 18-02-03-00, Tax Lots 600 & 602, Assessor's Map 18-02-09-00, Tax Lot 100, and
Assessor's Map 18-02-10-00, Tax Lot 100, more particularly described in Exhibit A attached hereto and
incorporated herein by reference, is hereby amended from Low Density Residential (LDR) to Parks and
Open Space
Section 4 If any section, subsection, sentence, clause, phrase, or portion of this Ordinance is
for any reason held to be invalid or unconstitutional by any court of competent jurisdiction, that portion
shall be deemed a separate, distinct, and independent provision and that holding shall not affect the
validity of the remaining portion of this Ordinance
Section 5 Notwithstanding the effective date of ordinances as provided by Section 2 110 of
the Springfield Municipal Code 1997, this ordinance shall become effective 30 days from the date of
passage by the City Council and approval by the Mayor, or upon the date of acknowledgement as
provided in ORS 197 625, or upon the date that an ordinance is enacted by the Lane County Board of
Commissioners approving the same amendments described in Section 3 of this Ordinance, whichever
date is latest
ADOPTED by the City Council of the City of Springfield this 2„d day of October , 2017
by a vote of 6 for and O against
APPROVED by the Mayor of the City of Springfield this 2nd day of Ortnhar , 2017.
Mayor
ATTEST.
City Recorder
REVIEWED &APPROVED
AS O FORM
ATE: •
OFFICE OF CITY A RNEY
Page 2 of 2
ORDINANCE NO. 6373
EXHIBIT A
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EXHIBIT A
Legal Description of Lands Within Springfield UGB Sublet].to Metro Plan Diagram Amendment
Tax Lots 17-02-35-00-03500, 17-02-35-00-03604, 18-02-02-00-0411, 18-02-03-00-00600& 18-02-03-
00-00602
All those lands described as Parcels I and 2 in that Warranty Deed recorded March 19.2013 as
Instrument Number 2013-015082,those lands described as Parcel 2 in that Warranty Deed recorded May
19.2014 as Instrument Number 2014-018147.and those lands described as Tracts I and 2 in that
Statutory Warranty Deed recorded August 22,2013 as Instrument Number 2013-046265.
Tax Lot 18-02-02-00100
Also,that portion of those lands described as Parcel 3 in that Warranty Deed recorded March 19, 2013 as
Instrument Number 2013-015082 h ing northerly and westerly of the top of the edge line,said ridge line
being more or less described as follow s:
Beginning at a point on the top of a ridge and the east line of said lands, said point being 2005 feet
southerly,more or less,from the northeast corner of said lands,thence running southwesterly along said
ridge to a point on the south line of said lands, said point being 722 feet westerly,more or less, from the
southeast corner of said lands.
Tax Lot 18-02-02-00-00400
Also,that portion of those lands described as Parcel 1 in that Warranty Deed recorded May 19,2014 as
Instrument Number 2014-018147 Bing northerly and westerly of the top of the ridge line,said ridge line
being more or less described as follows:
Beginning at a point on top of the ridge and the east line of said lands, said point being 200 feet southerly,
more or less, from the northeast corner of said lands; thence running southwesterly along said ridge to a
point on the south line of said lands, said point being 1084 feet easterly, more or less, from the southwest
corner of said lands.
Tax Lot 18-02-10-00-00100
Also,that portion of those lands described as Parcel 3 in that Warranty Deed recorded May 19,2014 as
Instrument Number 2014-018147 1)ing northerly and westerly of the top of the ridge line,said ridge line
being more or less described as follows
Beginning at a point on the top of a ridge and the north line of said lands, said point being 1084 feet
easterly, more or less, from the northwest corner of said lands;thence running southwesterly along said
ridge to the point where the west line of said lands intersects the south line of Section,3,Township 18
South, Range 3 West.of the Willamette Meridian
Tax Lot 18-02-09-00-00100
Also,that portion of those lands described as Parcel 4 in that Warranty Deed recorded May 19,2014 as
Instrument Number 2014-018147 lying northerly and westerly of the top of the ridge line,said ridge line
being more or less described as follows:
Beginning at the most easterly northeast corner of said lands:thence running southwesterly along the
ridge to a point on the easterly margin of Weyerhaeuser Road said point being on the west line of said
lands,and lying 815 feet from the southwest corner of thereof
ORDINANCE NO 6373
EXHIBIT B
Staff Report and Findings
Lane County Board of Commissioners and Springfield City Council
Type 1 and Type 11 Amendments to the Metro Plan Diagram
Hearing Date: September 18. 2017
Case Number: TYP417-00001
Applicant: Eric Wold, Willamalane Park& Recreation District
Project Location: Ten contiguous tax lots located generally south of McKenzie Highway, south and
east of South 69th Street, and east of the former Weyerhaeuser haul road.
Request
Applicant's Project Narrative: "Willamalane Park and Recreation District (TiPR/J). the 'applicant'.
requests Metro Plan Amendment and Zoning Map Amendment t application approval to change the plan
and none designations of the properties that comprise Thurston Hills Natural Area (THNA) Park from
Low Density Residential to Parks and Open Space In 2013. the City of Springfield adopted the 2012
Willamalane Parks and Recreation Comprehensive Plan, winch identifies jitture needs for parks, natural
areas, recreation fncdmes, programs. and services The Plan includes specific actions directed toward
addressingfuture needs and ensuring the most effcctire use of community resources One such specific
action included in the Plan is the acquisition and development loll a natural area park in the Thurston
Hills area This application is a request for 4/etro Plat Amendment and Zoning Map Amendment
approval..
The City has received an application for a Type I and Type II Metro Plan diagram amendment and a
Zoning Map amendment from Willamalane Park & Recreation District (Attachment 5). The proposed
Metro Plan diagram amendment would change the plan designation for about 421 acres within the
Springfield Urban Growth Boundary I UGB) from Low Density Residential (TAR) to Parks and Open
Space A concurrent amendment to the Springfield Zoning Map would change the zoning of the property
from LDR and Light Medium Industrial (LMI) to Public Land and Open Space (PLO). About 418 acres
of the property is outside the City limits but within the Springfield GCB and the Metro Plan amendment
therefore requires joint adoption by the Springfield City Council and the Lane County Board of
Commissioners (Attachment 10). Approximately three acres of the subject property was annexed to the
City of Springfield in April, 2017 and the applicable Metro Plan amendment and Zone Change requires
action by the Springfield City Council only (Attachment 11). The Zoning Map amendment for property
within the City's UGB also requires action by the Springfield City Council only (Attachment 12).
About 245 acres of property that is owned by Willamalane Park & Recreation District falls outside the
Springfield UGB, and therefore is in Lane County jurisdiction. For the affected areas outside the
Springfield 11GB, the proposal would retain the Metro Plan designation of Forest Land and current
zoning of Non-Impacted Forest (F-1) and Impacted Forest(F-2)
In accordance with Springfield Development Code (SDC) Section 5.14-125.A. an amendment to the
Metro Plan diagram can be initiated by a property owner or public agency at any time The applicant
executed a Memorandum of Understanding (MOU) with the City in 2016 for development of the
Thurston Hills Natural Arca Park, which includes provisions for initiating the comprehensive plan
amendment and zone change. the application was submitted on January 27, 2017 and the joint
ORDINANCE NO 6373
Page 1 of 20
EXHIBIT B
Springfield and Lane County Planning Commissions public hearing on the proposed Metro Plan diagram
amendment was held on June 6, 2017. At the conclusion of the joint public hearing meeting. the
Springfield Planning Commission unanimously adopted a recommendation of support for the proposal
(Attachment 7). The application is now scheduled for a public hearing before the joint Springfield City
Council and Lane County Board of Commissioners on September 18. 2017.
Overview of Proposed Metro Plan Diagram Amendment
The adopted Metro Plan diagram designates the subject property for Low Density Residential land use.
Consistent with the adopted Willamalane Comprehensive Platt (2012), the applicant is proposing to
conserve the 666+ acre area for environmental stewardship and education. woodland habitat preservation,
and public recreational opportunities. The current residential zoning and comprehensive plan designation
for the property does not accommodate the proposed use as a large natural area park. To facilitate project
approval. Willamalane has initiated a Metro Plan diagram amendment and concurrent Zoning Map
amendment to change the plan designation from LDR to Parks and Open Space and the zoning from LDR
and LMI to PLO.
In accordance with SDC 5.14-115,B.1.a, a proposal to redesignate land between the City limits and the
Springfield IJOB is classified as Type II Metro Plan diagram amendment. requiring approval by
Springfield and Lane County only. In accordance with SDC 5.14-130, the property owner/public agency
initiated amendment to the Aletro Plan diagram is processed as a Type IV (legislative) land use action that
requires joint public hearings before the Lane County and Springfield Planning Commissions, and the
Lane County Board of Commissioners and Springfield City Council. The proposal to redesignate land
within the City limits is classified as a Type I Metro Plan diagram amendment, requiring approval by
Springfield only.
Notification and Written Comments
In accordance with the Oregon Administrative Rules (OARs) 660-018-0020. prior to adopting a change to
an acknowledged comprehensive plan or land use regulation, local governments are required to notify the
state Department of Land Conservation and Development (DLCD) at least 35 days prior to the first
evidentiary hearing. A Notice of Proposed Amendment was transmitted to the DLCD on April 28, 2017,
which is 39 days prior to the joint Springfield and Lane County Planning Commission public hearing on the
matter.
In accordance with SDC 5.2-110.B, 'lype IV legislative land use decisions require notice in a newspaper of
general circulation. Notification of the June 6. 2017 joint Planning Commissions public hearing was
published in the legal notices section of the Register Guard on May' 16 and 23, 2017. The City also
provided written notification to property owners and residents w ithin 300 feet of the outer perimeter of the
property on May 16. 2017 As a result of the initial public notification, stallreceived two telephone calls
and one written comment was received from Dave and Kelly Moore. 7291 Holly Street, Springfield, 97478:
"We live at '291 Holly Street and our property hacks directly up to the project site. Although we appreciate
how the land A being used, ive have concerns about the proximity of the trails to our house. Do you have
ani'insight of where the trails a ill he. and 11.50 do wit expect our home to he risible from the trails.''
Staff Response. Staff referenced the conceptual trail layout plan provided by Willamalane for the project
area. While not a final design or as-built alignment for the planned trail system, it does provide a general
idea of the proximity of trails to existing homes to the west and northwest. The general location of the
primary "spine" trail that will pass to the cast and south of homes on Holly Street is already known because
it is based on an existing timber access road. Based on this information and available air photo imagery,
staff estimates that the main trail system will be at least 400 feet from the respondents' property. However.
ORDINANCE NO. 6373
Page 2 of 20
EXI IIBIT B
as the trail system develops there may be tributary connections from residential neighborhoods to the west
and northwest of the Thurston Hills Natural Area Park. With the density of existing tree cover and planned
trail alignments located internal to the Willamalane property, it is unlikely that the trail system and its users
would be conspicuously visible or overheard from perimeter residential homes. Staff also notes that the
natural area trail system will he subject to further land use approvals thereby allowing interested residents
and property owners an opportunity to review the planned trail network and its proximity to nearby streets
and residential areas.
A second round of public notification was provided for the joint Lane County Board of Commissioners and
Springfield City Council public hearing meeting. Notification of the September 18, 2017 joint public
hearing meeting was published in the legal notices section of the Register-Guard on September 1 and 11,
2017. Additionally, written notification was provided to property owners and residents within 300 feet of
the outer perimeter of the affected property on August 28. 2017. Staff posted three public hearing notices
on the perimeter of the subject property and notices were also posted in the City Hall lobby, on the
Development& Public Works Department digital display.and on the City's w ehsite.
Background
Applicant's Project Narrative "In 2014. Willamalane acquired 665 acres of property in the Thurston
Hills area for the natural area park. Approximately 420 acres of the total acreage is within Springfield's
Urban Growth Boundary but outside the existing City limas The District is also in discussions with
landowners to acquire more property along the ridgelinc. Thee land investments wdl enable If illamalate
to preserve rrews, a ddlife habitat and sensitive natural areas, and provide walking, hiking and mountain
biking opportunities II'illanalate km been making progress toward the realization of THI'v 1 Park
through multiple initiatives-
• Both the 2004 and 2012 I6illamalane Comprehensive Plans include strategiec to acquire and
develop property for a natural area park and trails in the Thurston Hills areas
• In 2012, Springfield voters approved a Willamalane capital bond package. which included funds
identified for acquisition and improvements of a natural area park in the Thurston Hills area
• In 2016. Ifillamalane and the City executed a Memorandum of Understanding (MOLT) regardin
the development of THNA Park
In 2012, Springfield-area voters approved Measure 20-199. a 520 nnillion II'illunmlane Park and
Recreation District Bond to hard projects aimed at expanding trails and preserving parkland around
hillsides, rivers and streams The bond measure included,funding for the THNA project and represents
public support for acquisition and development of THATA Park"
Criteria of Approval
Section 5 14-135 of the SDC contains the criteria of approval for the decision maker to utilize during review
of Metro Plan diagram amendments. The Criteria of approval are:
SDC 5 14-135 CRI"TERIA
A Metro Plan amendment may he approved only f the Springfield City Council and other applicable
governing body or bodies find that the proposal conforms to the following criteria.
A. The amendment shall he consistent with applicable Statewide Planning Goals: and
ORDINANCE NO.6373
Page 3 of 20
EXHIBIT B
B Plan inconsistency.
1. In those cases where the Metro Plan applies, adoption of the amendment shall not make the
Metro Plan internally inconsistent
2 hi cases where Springfield Comprehensive Plan applies, the amendment shall be consistent
with the Springfield Comprehensive Plan
A. Consistency with Applicable State-Wide Planning Goals
Finding I. Of the nineteen statewide goals. thirteen are generally "urban" goals that may apply to
review to any plan map amendments in the city; however, it is the proposal and its effect on the
purpose of these goals that will determine whether or not the proposed amendment is "consistent
with" the applicable goals. The goals that are to be evaluated are: Goal 1 — Citizen Involvement:
Goal 2 — Land Use Planning; Goal 5 — Natural Resources, Scenic and Historic Areas, and Open
Spaces; Goal 6 — Air, Water and Land Resources Quality; Goal 7 — Areas Subject to Natural
Hazards; Goal R — Recreational Needs; Goal 9 — Economic Development; Goal 10 — Housing; Goal
11 —Public Facilities and Services; Goal 12 —Transportation; Goal 13 — Energy Conservation; Goal
14 — Urbanization, and Goal 15 — Willamette River Greenway. All nineteen statewide goals are
listed below: the narrative that accompanies each goal provides further explanation regarding the
thirteen goals identified above.
Goal 1 —Citizen Involvement
.4pplicant's Narrative "Goal 1 addresses the need to develop a citizen involvement program to
ensure citizen Involvement in all phases of the land use planning process. The development of
THN:4 Park has been fueled by citizen Involvement since project inception. The I!'i lanalane Park
and Recreation Comprehensive Plat was updated in 2012. using community surveys. public
involvement, and outreach activities to conduct the Community Needs Assessment Feedback
collected from over 2,000 district stakeholders and residents included their needs and preferences
related to natural areas, recreation facilities and programs over the next 20 years. This feedback
spurred the inclusion of the development of THN4 Park us a future circa of improvement in the
R'nllamedmne Park and Recreation Comprehensive Plan In addition, in 2012 Springfield-area
voters approved Measure 20-199, a 520 million O'fllamalane Park and Recreation District Baud to
fund prof eels aimed at expanding trails for hiking. hiking, and walking, and preserving natural
areas and parkland around hillsides. rivers and streams. The funds Jiom this bond measure are
supporting the THN.d project and represent public hacking for the project's development 7hc
Planning Commission of both Springfield and Lane County will nice! Jointly and will accept
testimony on the proposal Through the procedures established by the city, citizens receive notice of
herrings in a generally published local paper and have the opportunity to be heard regarding the
proposed amendments Notice of the public hearing is provided hl accordance with SIX'
requirements to properly miners within 300 feet of the proposed Zoning Map intendment Since the
proposal complies with the City's emzen involvement program and citizens have opportunities to he
involved in the procedure, the proposal is consistent with Goal I.
Finding 2: Goal I — Citizen Involvement calls for"the opportunity for citizens to be involved in all
phases of the planning process". The proposed amendment to the adopted Metro Plan diagram is
the subject of a legislative decision-making process with multiple public hearings before the City's
Planning Commission and Council. Because the project area includes property between the City
ORDINANCEpNO.6373
Page 4 of 20
EXHIBIT B
limits and UGB, the Lane County Planning Commission and Board of Commissioners will be
reviewing the proposal jointly with Springfield. The Springfield and Lane County Planning
Commissions held a joint public hearing to consider the proposed amendment on June 6, 2_017. The
joint Planning Commissions public hearing was advertised in the legal notices section of the
Register-Guard on May 16 and 23, 2017. Additionally, property owners and residents within 300
feet of the outer perimeter of the subject property were notified by mail on May 16, 2017. Staff
finds that notification of the joint Planning Commissions public hearing was published in the
Register-Guard newspaper at least two weeks prior to the meeting date.
Finding 3. Staff advises that a second round of public notification letters was sent on August 28,
2017 for the joint Springfield City Council and Lane County Board of Commissioners public
hearing meeting. Additionally, a public hearing notice for the joint City Council and Board of
Commissioners meeting was published in the legal notices section of the Register-Guard newspaper
on September 1, which is at least two weeks prior to the September 18, 2017 meeting date, and
again on September 11 Based on the foregoing, staff finds that the proposed Metro Plan diagram
amendment is consistent with Goal 1 requirements.
Goal 2 - Land Use Planning
Applicant's Narrative "Goal 2 requires that local comprehensive plans be consistent with the
Goals, he internally consistent. and that implementing ordinances be consistent with acknowledged
comprehensive plans Goal 2 also requires that land use decisions be coordinated with affected
jurisdictions and that the)' he supported by an adequate fuctual hosts As required in .SDC Sections
L5-B and 514-130, the City is required to give referral notice of the proposed T;pe II Metro Plan
diagram amendment to the City of Eugene and Lane County so they num' determine if there are
,(grounds to participate as parties to the hearing. The City also sends the statutorily required notice
of the initial public hearing 45 days in advance to the state Department of Land Conservation and
Development, ensuring that they are given opportunity fdtr comment and review in conformity to
applicable statewide planning goals. The Metro Plan and the SDC. ac well as the Statewide
Planning Goals and applicable statutes, provide policies and criteria for the evaluation of the
Comprehensive Plan amendments Compliance with these measures assures an adequate(factual
basis for approval of the proposed Metro Plan diagram amendment As discussed elsewhere in this
document, the proposed Plan Amendment is consistent with the Alelro Plan and the Goals. By
demonstrating such compliance, the Amendments satisfy the consistency element of Goal 2.-
Finding 4. Goal 2 - Land Use Planning outlines the basic procedures for Oregon's statewide
planning program. In accordance w)th Goal 2, land use decisions are to he made in accordance with
a comprehensive plan, and jurisdictions are to adopt suitable implementation ordinances that put the
plan's policies into force and effect
Finding 5: The Eugene-Springfield Metropolitan Arca General Plan (Aletro Plan) is the
acknowledged comprehensive plan for guiding land use planning in Springfield. The City has
adopted other neighborhood- or area-specific plans (such as Refinement Plans) that provide more
detailed direction for land use planning under the umbrella of the Metro Plan The City of
Springfield and the City of Eugene are in the process of adopting individual comprehensive plans to
ultimately replace the Aletro Plan in accordance with the requirement in ORS 197.304 that each city
shall separately establish its urban growth boundary and buildable lands inventory. The Springfield
City Council and Lane County Board of Commissioners have co-adopted the Springfield 2030
Refinement Plan Residential Land Lce and Housing Element as a Springfield-specific refinement to
ORDINANCE NO.6373
Page 5 of 20
EXHIBIT B
the Metro Plan. The residential land use policies of both the Metro Plat and the Springfield 2030
Refinement Plan are applicable to this application.
Finding 6: The public hearing process used for a Metro Plan amendment is specified in Chapter IV
Metro Plan Review, Amendments, and Refinements. The findings under Criteria B (below)
demonstrate that the proposed amendment will not make the adopted Metro Plan internally
inconsistent.
Finding 7: The ,Springfield Development Code is a key mechanism used to implement the goals and
policies of the City's adopted comprehensive plans. The proposal is classified as a Type I
amendment to the adopted Akira Plan diagram that is approved by Springfield only in accordance
with SDC 5.14-115.A. The proposed Metro Plan diagram amendment is processed as a Type IV
land use action (legislative) as described in SDC 5.1-140 and 5.14-130. Staff finds that the
proposed Metro Plan diagram amendment is consistent with the policies pertaining to Review,
Amendments and Refinements. Additionally, the proposed Metro Plan diagram amendment has
been initiated in accordance with the provisions of the Cit\'s acknowledged Comprehensive Plan
and Des elopment Code. Staff finds the proposed Metro Plan diagram amendment does not affect
City ordinances, policies, plans, and studies adopted to comply with Goal 2 requirements.
Goal 3 -Agricultural Land
Applicant's Narrative. "Tax Lots within the subject site are designated by the Metro Plan as Loin
Density Residential and hi' the Springfield Zoning Map as Low Density Residential (LDR). with the
exception of one lar lot that includes the Light Medium Industrial (LAN) designation The proposal
does not involve designated agricultural lands Therefore, the proposed Amendments are consistent
with Goal 3 -
Finding
"Finding 8: Goal 3 - Agricultural Land applies to areas subject to farm zoning that are outside
acknowledged urban growth boundaries (UGBs): "Agricultural land does not include land within
acknowledged urban growth boundaries or land within acknowledged exceptions to Goals 3 or 4."
(Text of Goal 3). The City has an acknowledged UGB and therefore consistent with the express
language of the Goal, does not have farm land zoning within its jurisdictional boundary
Furthermore, the site of the proposed Metro Plan diagram amendment is inside the City's
acknowledged LOB. Consequently. and as expressed in the text of the Goal, Goal 3 is not
applicable.
Goal 4-Forest Land
Applicant's Narrative. "Goal 4 dues not apply to land included with the proposal. The tax lots
within Springfield jurisdiction are nut designated for forest use and the proposed amendments will
not [be]removing lard from the forestland base. [I711amalaze previously received a grant from the
11 S. Forest Service for the preparation of a community forest plan for a '8.97-acre tract of land in
[the] northern portion of THATA Park The overarching goal of the community forest is to maintain
a large tract of productive forestland adjacent to an urban area and introduce public access,
recreation, environmental education, and hest practices for sustained stewardship. A portion of the
park is located within Lane County jurisdiction and is designated as forestland. Proposed uses and
development within this portion will be addressed through separate laid use approval processes
with Lane Count' Therefore, the proposed Amendments are consistent with Goal 4-
ORDINANCE
-ORDINANCE NO. 6373
Page 6 of 20
EXHIBIT B
Finding 9: Goal 4 — Forest Land applies to timber lands zoned for that use that are outside
acknowledged UGBs with the intent to conserve forest lands for forest uses: "Oregon
Administrative Rule 660-006-0020: Plan Designation Within an Urban Growth Boundary Goal 4
does not apply within urban growth boundaries and therefore, the designation of forest lands is not
required: The City has an acknowledged UGB and does not have forest zoning within its
incorporated area. Furthermore. the site of the proposed Metro Plan diagram amendment is inside
the City's UGH. Consequently. and as expressed in the text of the Goal, Goal 4 is not applicable.
Finding 10: As stated in the applicant's narrative. approximately 245 acres of the project area lies
outside the City's UGB and exclusively within Lane County jurisdiction. The comprehensive plan
designation and zoning for the Lane County portions of the project area are Forest land, and there
are no proposed changes to the plan designation or zoning. The applicant is addressing the Goal 4
requirements in more detail in the application submitted to Lane County under separate cover (Case
509-PA17-05292).
Goal 5 —Natural Resources, Scenic and Historic Areas, and Open Spaces
Applicant's Narrative' "Goal 5 requires local governments to protect a variety of open space.
scenic, historic, and natural resource values Goal 5 and its implementing rule, OAR Cit 660,
Division 16, require planning jurisdictions, at acknowledgement and as a part of periodic review, to
(1) identtf}' such resources, (2) determine their quality. quantity. and location, (3) identify
conflicting uses. (d) examine the economic, social, environmental, and energy (ESEE)
consequences that could result from allowing, limiting, or prohibiting the conflicting uses. and (5)
develop programs to resolve the conflicts There is only one subject property on Springfield's
acknowledged Metro Plan Goal 5 inventory No threatened or endangered species have been
inventoried on the site, and no archaeological or significant historical inventoried resources are
located on the site The National Wetland Inventory and Springfield Local II eland Inventory maps
have been consulted and the site includes one inventoried Goal 5 resource Hoverer, the proposed
Amendment does not change the protection status of the resource It can be argued that the
proposed Amendment enabling the future development of the site as a regional park will help
protect the resource ac opposed to the Low Density Residential classification The proposed
Amendments also do not suggest development on the .cue that would impact the resource.
Therefore, the proposed Amendments do not alter the City's compliance with Goal 5
Finding 11: Goal 5 -- Open Spaces, Scenic and Historic Areas. and Natural Resources applies to
more than a dozen natural and cultural resources such as wildlife habitats and wetlands. and
establishes a process for each resource to be inventoried and evaluated. The site that is subject of
the proposed Metro Plan diagram amendment has been identified in the City's Natural Resources
inventory, and it contains the Frederick Gray house which is an Oregon registered historic site.
Additionally, the project area is specifically identified as a major natural area park in the
Willamalane Park & Recreation District Comprehensive Plan. The property containing the Gray
house is inside the Springfield City limits and therefore is subject to a Type I Metro Plan diagram
amendment. The Springfield City Council will be reviewing the amending Ordinance concurrently
with the subject Type II Metro Plan amendment at the joint public hearing meeting on September
18, 2017 (Attachments 10 and 111.
Finding 12: The City does not have a specific zoning district which it applies to inventoried Goal 5
natural resources: the presence of these resources is completely independent of the process used to
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EXHIBIT B
zone and designate land. Protective measures for all of the City's inventoried Goal 5 resources are
applicable to the resource and are not circumscribed or altered based on zoning classification. The
proposed amendment to the Metro Plan diagram does not modify or alter the City's Development
Code or other Metro Plan policies relating to identified natural resources. In fact, the proposed plan
designation and zoning as Parks and Open Space enhances the opportunity for conservation and
protection of the natural and historic resources within the property.
Finding 13: The proposed Metro Plan diagram amendment does not make any changes to adopted
Goal 5 natural resources development standards or protective measures adopted to comply with
Goal 5 requirements. Therefore, this action does not alter the City's acknowledged compliance with
Goal 5.
Goal 6-Air, Water and Land Resources Quality
Applicant's Narrative "The purpose of Goal 6 is to maintain and improve the quality of the air,
mater and land resources of the state. Generally. Goal 6 requires that development comply with
applicable state and federal air and water quality standards In the context of the proposed Metro
Plan diagram amendment, Goal 6 requires that the applicant demonstrate that it is reasonable to
expect that applicable state and federal environmental quality standards can be met The proposed
Amendments do not m o hfi'any of/he Goal 6 related policies of the Metro Plan, nor do they amend
the Regional Transportation Plan, the Springfield Development Code, other applicable Goal 6
policies, or anti' regulations implementing those policies Therefore, the proposed Amendments do
not alter the City's compliance with Goal 6 -
Finding
"Finding 14: Goal 6 - Air, Water and Land Resources Quality applies to local comprehensive plans
and the implementation of measures consistent with state and Federal regulations on matters such as
clean air, clean water, and preventing groundwater pollution. The proposed Metro Plan diagram
amendment does not affect City ordinances, policies, plans. and studies adopted to comply with
Goal 6 requirements. Therefore. this action does not alter the City's acknowledged compliance with
Goal 6
Goal 7-Areas Subject to Natural Hazards
Applicant's Narrative "Goal -requires that development subject to damage from natural hazards
and disasters he planned and or constructed with appropriate safeguards and mitigation The goal
also requires that plans he based on an inventory of known areas of natural disaster and hazards,
such us areas pone to landslides. flooding, etc After review of the natural constraints map and the
FLAN Floodplain Map in relation to the subject area, the area is not included in the C'ite's
inventory of known areas of natural hazard other that steep slopes. which can he at-risk for
landslides Proposed development of the site as a Regional Park does not propose incompatible
levels of development with steep slopes (such as roads, homes. or other infrastructure) and will he
designed accordingly to minimize the risk posed by steep slopes. The site is located veil outside of
any established 1/:11A flood hazard areas. Therefore, approval of the proposed Amendments will
not alter the City's acknowledged compliance with Goal - through its adopted plans, codes and
procedures '.
Finding 15: Goal 7 - Areas Subject to Natural Ilazards applies to development in areas such as
floodplains and potential landslide areas Local jurisdictions are required to apply "appropriate
safeguards" ss hen planning for development in hazard areas. The Cit\ has inventoried areas subject
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EXHIBIT B
to natural hazards such as the McKenzie and Willamette River flood plains and potential landslide
areas on steeply sloping hillsides. Portions of the subject site are within the City's mapped potential
landslide hazard areas—particularly the hillsides in the southwest quadrant of the property.
Finding 16: Based on the City's topographical mapping information, much of the property subject
to the Metro Plan amendment and Zone Change has slopes exceeding 15 percent and/or lies above
the 670-foot elevation mark. Both of these factors contribute to the application of the City's
Hillside Development (HD) Overlay District to the subject property. The HD Overlay District is
primarily used to ensure that development in hillside areas minimizes the risk of earth movement
and landslides, protects natural features and vegetation, protects water features and channels, and
protects public health and safety. Any development on the subject property, including a public
recreational trail system and related amenities, would be subject to the applicable provisions of the
HD Overlay District and related permitting requirements.
Finding 17: The proposed Metro Plan diagram amendment has no effect on City ordinances,
policies, plans, and studies adopted to comply with Goal 7 requirements and siting standards for
development within the Hillside Development Overlay District and landslide hazard areas.
Furthermore. the site proposed for Metro Plan diagram amendment is not exempted from
conformance with regulations affecting these hazard areas. Therefore, this action has no effect on
the City's acknowledged compliance with Goal 7.
Goal 8 —Recreational Needs
Applicant's Narrative. "Goal 8 requires local governments to plan and protide for the siting of
necessary recreational facilities to "satisfy the recreational needs of the citizens of the state and
visitors, " and inhere appropriate, provide for the siting of recreational facilities including
destination resorts. The Willamalane 20_year Park and Recreation Comprehensive Plan seas
adopted by the City of Springfield as part of the Metro Plan's compliance with Goal 8. The
applicant proposes conversion of 428 95 acres of Lor Denson Residential land for open space and
recreation purposes The proposed Amendment designate said land for parks and open space use,
consistent with the definition of a Regional Park permitted in the zoning district. City approval of
the proposal will constitute a» increase in the availability of public recreational facilities in the
area following development of said parkland As such. changing the designation of the subject
property will have no impact on the (7ty's existing park and open space supply In no case, as a
result of the proposed Amendment, mould a reduction in recreational facilities occur Through the
proposed Amendment. the proposal will increase the amount of recreation capacity within
Springfield The proposal does not involve the siting of destination resorts Based on these
findings. the proposed Amendments are consistent with Goal 8.,.
Finding 18: Goal 8 — Recreational Needs requires communities to evaluate their recreation areas
and facilities and to develop plans to address current and projected demand. The provision of
recreation services within Springfield is the responsibility of Willamalane Park & Recreation
District. As previously stated herein, Willamalane has an adopted 20-Year Comprehensive Plan for
the provision of park, open space and recreation services for Springfield which was acknowledged
by the Department of Land Conservation and Development after adoption by the Springfield City
Council on November 4. 2013. The proposed Metro Plan diagram amendment would be consistent
with Willamalane's adopted Comprehensive Plan. which is a refinement plan to the Metro Plan.
The Thurston Hills Natural Area Park is identified as a key element of the Comprehensive Plan
(Project 3.9). Because the City has co-adopted the Willamalane Comprehensive Plan as a
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EXHIBIT B
refinement plan to the Metro Plan for purposes of consistency with Goal 8 Recreational Needs, the
proposed action would he consistent with the provisions of the adopted comprehensive plans. The
proposal would not conflict with other ordinances, policies, plans, and studies adopted to comply
with Goal 8 requirements. Therefore, this action has no adverse effect on the City's acknowledged
compliance with Goal 8.
Goal 9—Economic Development
Applicant's Narrative "Coal 9 requires the city to provide adequate opportunities for a variety qi
economic activities vital to the health, welfare, and prosperity of the citizens The proposed
Amendments will not affect the city's capacity jiff economic development, and do not alter the City's
compliance with Goal 9."
Finding 19 Goal 9 — Economic Development addresses diversification and improvement of the
economy. It requires local jurisdictions to conduct an inventory of commercial and industrial lands,
anticipate future needs for such lands, and provide enough appropriately-zoned land to meet the
projected demand over a 20-year planning horizon. The City previously completed an analysis of its
employment land base and determined that a deficit existed. To address the projected deficit of
commercial and industrial land, the City has undertaken a multi-year process to expand the Urban
Growth Boundary (UGB) in the Gateway and South 28'h Street areas. Expansion of the UGB is
intended to provide sufficient employment-generating land area for the mandated 20-year planning
horizon. The proposed redesignation and rezoning of the subject property would not have an effect
on the amount of employment land within the City's inventory.
Finding 20: The proposed redesignation and rezoning would not affect other City ordinances.
policies, plans, and studies — such as the Commercial-Industrial Buildable Lands (CIBI.) Survey —
adopted to comply with Goal 9 requirements. All of the city's economic development policies
related to zoning classifications rely on commercial, industrial and mixed use land inventories. This
proposed redesignation would not have an effect on the commercial and industrial land inventory
and would not adversely impact the City's acknowledged compliance with Goal 9.
Finding 21: The subject property is listed in the residential land inventory as discussed in Goal 10
findings below, and conversion to a different type of land use was not envisioned for this site when
the City completed its studies and conclusions in 2011. A portion of Assessor's Map 18-02-09-00,
Tax Lot 100 is inside the City's UGB and is currently zoned Light Medium Industrial (LMI), but is
designated LDR on the Metro Plan diagram. A plan-zone conflict currently exists for this parcel
that will he corrected by the proposed Metro Plan Diagram amendment and Zone Change Staff
observes that, notwithstanding the LMI zoning. the LDR designation for the portion of Tax Lot 100
inside the City's UGB constitutes a plan-zone conflict which means that this parcel would not have
been counted as part of the City's CIBI. inventory. Therefore, the proposed redesignation and
rezoning of Tax Lot 100 should have no impact on the CIBI. Inventory and the City's actions to
expand the UGB lin-employment purposes
Goal 10- Housing
Applicant's Narrative "Goal 10 requires that communities plan for and maintain an inventory of
buildable residential land for needed housing units The 2011 Springfield Residential Laud and
Housing .Needy Analysis (RLHNAI analy:es housing inventory and need for the next 20 rear and is
Springfield's mast current adopted housing studs related to Goal 10. Analysis of the subject site
identified 159.08 acres of buildable residential land that were included in the RLHNA inventory.
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EXHIBIT B
Removal of the land from the residential inventory will not detrimentally affect the Car's existing
surplus of building residential land in the Low Density Recidential roiling district The findings
under Metro Plan Residential Land Use and Housing Element Policy A 3 are incorporated by
reference herein as demonstration of consistency with Goal 10."
Finding 22. Goal 10 — Housing applies to the planning for — and provision of— needed housing
types, including multi-family and manufactured housing. As noted by the applicant's narrative, staff
and third-party analysis has determined that a surplus of LDR designated land exists within the
City's land inventory. The proposal would not reduce the City's residential land inventory below
threshold levels requiring mitigation or compensatory actions elsewhere within the UGH. but it will
require an adjustment to the City's tabulation of buildable residential land still in the inventory.
Table 6-7, Residential Land and Housing Element, Springfield 2030 Refinement Plan identifies total
surplus of 378 acres of Low Density Residential land within the Springfield I IGB as of 2010. Since
2010,the City of Springfield has approved two applications to redesignate and rezone LDR property
that have reduced the identified surplus. About 7 acres of LDR land was removed from the
inventory upon adoption of Ordinance 6364 on March 7. 2017. Approximately 370 acres of LDR
designated land remains within the City's huildable residential land inventory after adoption of
Ordinance 6364. Pending an appeal to the Oregon Land Use Board of Appeals (LUBA), Ordinance
6369 adopted on June 19, 2017 would remove another 3.3 acres of LDR from the inventory. The
proposed Metro Plan Amendment and Zone Change would remove about 159 acres of huildable low
density residential land from the inventory, and would bring the City's inventory of surplus LDR
land to just under 208 acres. The applicant provides additional discussion of the impact of this
proposal to the City's residential land inventory in Section B.l below
Finding 23: The applicant's narrative identifies findings in response to Metro Plan Homing
Element Policy A 3 that demonstrates consistency with Goal 10. The applicant's narrative does not
specifically address any policies within the Springfield 2030 Plan Residential Land Use and
Housing Element, but because the proposed amendment maintains the surplus of LDR designated
land. staff find that the proposed amendment is not inconsistent with the Springfield 2030 Plan
Residential Land Use and Homing Element
Goal I l —Public Facilities and Services
Applicant's Narrative "Goal 11 requires the provision of a timely, orderly and efficient
arrangement of public facilities and.services. The.subject site can he served by an orderly extension
of urban services The proposed Amendments will not affect the ability to provide needed services
Therefore, the Amendments are con ci.ctent with Goal 11
Finding 24: Goal 11 - Public Facilities and Services addresses the efficient planning and provision
of public services such as sewer. water, law enthrcement. and fire protection. In accordance with
OAR 660-011-0005(51, public facilities include water, sewer and transportation facilities, but do not
include buildings. structures or equipment incidental to the operation of those facilities. The
proposed redesignation and rezoning will not result in permitted uses that will hale an appreciable
effect on the demand for public facilities and services provided to the subject property and adjacent
properties. In fact, removal of the subject property from the residential land inventory greatly
reduces the demand for public facilities and services that otherwise would be required to develop the
land to urban standards — particularly for land within steeply-sloping, hillside areas. Therefore, the
City's continued acknowledged compliance with Goal 11 is not affected by this proposal.
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Goal 12 —Transportation
Applicant's Narrative "Goal 12 requires local governments to provide and encourage a safe,
convenient and economical transportation system The proposed map Amendment involves
approximately 666 acres of property of which the majority is within the Low Density Residential
caning district In compliance with OAR 660-012-0060. a transportation analysis report is included
as Exhibit D. This report highlights that the PM peak hour and average daily trip (ADT)generation
associated with the proposed use is a reduction in the potential that would he generated by the site if
it were developed under land Ilse permissions associated with the existing plan and zone
designations Therefore, the Amendments are consistent with Goal 12."
Finding 25: The proposed redesignation from LDR to Parks and Open Space would change the
types of uses permitted to be developed on the property, and significantly reduce the intensity of use
on the subject property. Rezoning of the property to PLO would implement the amended
Comprehensive Plan designation for the property. Although the PLO District allows for a variety of
recreational, cultural and educational buildings and facilities (including schools and recreation
centers), the planned Thurston Hills Natural Area Park will not have such facilities. The applicant's
project narrative and supporting transportation analysis acknowledges that the proposed Metro Plan
Diagram amendment and Zone Change would result in a marked reduction in vehicle trips
associated with the property.
Finding 26: Oregon Administrative Rules (OAR) 660-012-0060 requires that, "if an amendment to
a functional plan, an acknowledged comprehensive plan, or a land use regulation (including a
zoning map). would significantly affect an existing or planned transportation facility, then the local
government must put in place measures" to mitigate the impact, as defined in OAR 660-012-
0060(2).
Finding 27: The proposed Metro Plan Diagram amendment and Zone Change, and esentual
development of the Thurston Hills Natural Area Park itself, affects portions of southeast Springfield
identified for extension of local and collector streets to complete the transportation network for the
area. The City's Conceptual Local Street Plan identifies a number of north-south and east-west
connector streets that pass through the subject property Portions of the Thurston Hills that abut the
western and northwestern edges of the subject property are isolated by geography and intervening
land ownership. As a result, the fragmented road network lacks good connectivity that facilitates
efficient emergency response and promotes the dispersal of traffic throughout the system.
Finding 28: The City of Springfield and Willamalane Parks and Recreation District have executed a
memorandum of understanding to allow for a temporary emergency access road to replace the
planned local road extension of Jessica Drive shown on the Conceptual Local Street Map through
the northern stub of the property proposed for Metro Plan Diagram amendment and Zone Change.
This extension, if warranted in the future, will pros ide the necessary secondary emergency access to
adjoining developable residential properties(Attachment 8).
Finding 29: The applicant has provided a memorandum from an Oregon Licensed Professional
Engineer addressing Oregon's Transportation Planning Rule Goal 12 requirements. The finding of
"no significant effect" is accepted and approved by the City of Springfield based on a lack of trip
generation associated with the proposed zone change from Low Density Residential (LDR) to Parks
and Open Space
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EXHIBIT B
Finding 30: The City of Springfield's adopted Transportation System Plan (TSP) includes a planned
"as development occurs" collector street which is shown bisecting the property proposed for the
Metro Plan Diagram amendment and Zone Change. 'I his collector street would provide
connectivity around the southern side of the Mountaingate development connecting with planned
park, school and commercial development areas Since no urban-density development will occur on
the subject property, the collector street will remain a planned facility in the FSP, but will need to he
implemented through mechanisms other than development of the area for residential uses if the
Metro Plan Diagram amendment and zone change are approN ed
Goal 13 —Energy Conservation
Applicant's Narrative "The Energy goal is a general planning goal and provides limited guidance
for site-specific map amendments. Goal 13 is directed at the development of local energy policies
and implementing provisions and does not establish ant'requirements frith respect to other types of
land use decisions To the extent that Goal 13 could he applied to the proposed Amendments, the
designations are consistent with Goal 13 The proposal will not hinder management or
conservation practices related to energy consumption.'
Finding 31: Goal 13 — Energy Conservation states that "land and uses developed on the land shall
be managed and controlled so as to maximize the conservation of all forms of energy, based upon
sound economic principles '. The proposed comprehensive plan amendment and rezoning does not
affect the City's ordinances, policies, plans, or studies adopted to comply with Goal 13
requirements. Converting the 421 acres of property from LDR to PLO should result in a significant
reduction in energy consumption because a natural area park has a minimal energy footprint in
comparison to an equity alent area developed with single family dwellings. The developer will have
an opportunity to incorporate suitable energy conservation measures into the future site development
upon redesignation and rezoning of the subject property. The City's building codes comply with all
Oregon State Building Codes Agency standards for energy efficiency in residential building design.
The site's solar access is not compromised by surrounding development. The City's conservation
measures applicable to storm water management erosion and sediment control, and groundwater
protection apply to all recreational uses developed on this site; therefore, this action has no effect on
the city's acknowledged compliance with Goal 13.
Goal 14 - Urbanization
Applicant's Narrative "The proposed Amendments apple' to a site that is currently undeveloped
and rural in nature By cultivating the space as a Regional Park. a more seamless interface is
created between the rural and urban environment enhancing the livability 01 the urban area
Therefore, Goal 14 does not apply."
Finding 32: Goal 14 —Urbanization requires cities to estimate future growth rates and patterns, and
to incorporate, plan, and zone enough land to meet the projected demands. The City did not plan for
recreational land use on the subject property when completing its Residential Land and I-Iousing
Inventory. However, consistent with provisions of Goal 14. the City is responding to a request from
a public agency to redesignate and rezone the subject property from residential to public parks and
open space. The proposed comprehensive plan amendment and zone change will be noted on both
the residential land inventory and the public open space inventory; similar reporting of inventory
changes due to development will occur as required by ORS. However, the proposed redesignation
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EXHIBIT B
and zone change does not affect the City's adopted ordinances, policies, plans, or studies adopted to
satisfy the compliance requirements of Goal 14
Goal 15 —Willamette River Greenway
Applicant's Narrator' "Goal 15 does not apply to the proposal because the subject area is not
located within the Willamette River Greenway-
Finding
reene ay"Finding 33: Goal 15 — Willamette River Greenway establishes procedures for administering the 300
miles of greenway that borders the Willamette River, including portions that are inside the City
limits and UGB of Springfield. The subject site is not within the adopted Willamette River
Greenway Boundary area so this goal is not applicable The proposed comprehensive plan
amendment and zone change does not change or nullify the requirement for development proposals
to comply with the City's existing Willamette River Greenway regulations regardless of the
underlying zoning, and to demonstrate compliance with Goal 15 requirements. Any new
development proposed on land within the Willamette Greenway Overlay District would he subject
to a separate Type III land use approval process requiring a public hearing before the Springfield
Planning Commission or Hearing Official, therefore this action has no effect on the city's
acknowledged compliance with Goal 15.
Goals 16-19 Estuarine Resources, Coastal Shorelands. Beaches and Dunes, and Ocean Resources
Applicant's Narrative "The subject site A not located within any coastal, Ocean, estuarine, or
beach and dune resources related area Goals 16-19 do not apply to this application."
Finding 34: Goals 16-19 — Estuarine Resources: Coastal Shorelands, Beaches and Dunes: and
Ocean Resources: these goals do not appl) to land within the Willamette Valley, including
Springfield. Therefore, in the same way that Goals 3 and 4 do not apply in Springfield, Goals 16-19
do not apply in Springfield or to land use regulations adopted in Springfield.
Conclusion: Staff has concluded. with the exception of Goal 7 — Areas Subject to Natural Hazards
(as explained in the preceding text under this Goal), that the proposed Metro Plan diagram land use
designation amendment from Low Density Residential to Parks and Open Space is consistent with
the criteria for such action in SDC 5.14-135 (A): "The amendment shall he consistent with
applicable Statewide Planning Goals.'
B. Plan Inconsistency
1. In those cases where the Metro Plan applies, adoption of the amendment shall not make the
Metro Plan internally inconsistent.
Applicant's Narrative "The application requests amendment of the Metro Plan diagram from Lou
Density Residential to Parks and Open Space for 421.15 acres. This section of the application
narrative addresses the consistency of the Amendments a nth the applicable policies of the Metro
Plan. to demonstrate that adoption of the Amendments will not make the Metro Plan internally
consistent. This narrative only addresses those policies that apply to the proposal, and does not
discuss those portions of the Metro Plan that (1) apply to land uses other than the current or
proposed designations for the subject site and will not he affected by the proposed Plan diagram, or
(2) clearly apply only to .specific development applications (e g, site plan review submittals or
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EXHIBIT B
subdivisions). All Metro Plan policies were evaluated in relation to their applicability to the
Amendments and the following policies were found to be applicable to the proposal The findings
demonstrate how the Plan Amendments are consistent with, and are in fact supported hr the policy
directions contained in the Metro Plan.
Metropolitan Residential Land Use and Housing Element
Residential Lund Supply and Demand
A 3 Provide an adequate supply of buildable residential land within the UGB for the
20-year planning period at the time of Periodic Review.
In June 2011, the City of Springfield adopted un ordinance amending the Metro Plan to adopt the
Springfield 2030 Refinement Plat Residential Land Use and Housing Element and to establish a
separate Springfield Urban Growth Boundary pursuant to ORS 197.304. The ordinance included
the Springfield Residential Land and Housing Needs Analysis (RLHNA), which is an 'analysis of
land supply and housing demand prepared by ECONordnrest that incorporates input from citizens,
stakeholder groups. commissions, and elected officials received throughout a mlti-year citizen
involvement process that included a Residential Lands citizen advisory committee, online public
surveys, community workshops, work sessions, open louses and public hearings This analysis
applies to the proposal. which involves the removal of land from the residential inventory
According to the RLHNA, Springfield has a 3-8-acre surplus of Loy Density Residential land, and a
300-acre deficit of Parks and Open Space Land In regard to parks and open space land, the
technical analysis on page '1 states
'The Parks and Open designation has a deficit o1 300 acres. This need does not imply that
the ('int' should expand the (7GB for parks and open space. The City has a surplus of
buildable lands in the low and medium density residential plan designations that can provide
land for future parks within those designations, consistent with the objectives oft he adopted
Park and Recreation Comprehensive flan A portion of the parks and open space need can
also he met on residentially designated land that has constraints and therefore is not counted
as buildable acres (e g ridgelme trail systems)
As discussed above, the technical analysis identifies a deficit of land in the Parks and Open Space
designation and includes an estimate of f inure land needs The estimate of land needed for parks
and open space uses a parkland standard of 14 acres per 1,000 persons based on the level of service
standard established in the 2004 it'illamalane Parks and Recreation Comprehensive Plan, which
projected need for parkland in Springfield between 2002 and 2022 Based on the level of service
standard, an additional 357 acres of parks and open space land is needed by 2030 Although
If'dlamalne adopted an update to the Comprehensive Plan in 2012. the 2004 Comprehensive Plan
was the adopted plan at the time of preparation of the RLIINA The estimates of parks and open
space land needs in the RUIN. and 2012 Plan are consistent (357 acres and 364 acres.
respectively) The projected deficits of 357 acres in the Springfield RLHNA and 364 acres in the
2012 Plan fall within the estimated surplus of buildable land remaining in the UGB for residential
use in Springfield by 2030 In addition. Statewide Planning Goal R allows cities and park districts
to acquire land for park uses outside of Urban Growth Boundaries Willamala e's service district
boundary and planning area extend outside the Springfield UGB in .some areas. However, a
majority of the proposed parkland is within the UGB on residentially designated land a portion of
winch is land that has constraints and therefore is not counted as buildable acres The RHLNA
database was obtained from the City of Springfield and reviewed in order to isolate properties
associated with TI-1N4 Park that were included in the analysis and are within Springfield
jurisdiction Based on these properties, the Applicant identified buildable residential acres
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EXHIBIT B
associated with each tax lot and resolved several discrepancies in the database. The anah•sis
determined that 159 08 acres within subject sue are accounted for in the RHLNA as buildable
residential acres, as illustrated in Table [I-I] Buildable Residential Acres within THN1 Park [See
Page 22 of applicant's submittal]. Removal of the residential buildable acres from Springfield's
housing inventory will result in a remaining surplus of more than 300 acres of buildable residential
acres Thus. the proposal is consistent with this functional plan Willamalane's service district
boundary and planning area extend outside the Springfield UGB in some areas. However, a
majority of the proposed parkland is within the UGB on residentially designated land, a portion of
which is land that Inas constraints and therefore is not counted as buildable acres The land outside
of the UGB is rural forestland in character and will not he negatively impacted by the Amendments
Based on these findings, the proposed Amendments are consistent with the Residential Land Use
and Miming element of the Metro Plan
Environmental Resources Element
Forest Lands
C 5 Metropolitan goats relating to.scenic quality, water quality, vegetation and wildlife.
open space, and recreational potential shall be given a higher priority than timber
harvest within the UGB.
C Conserve forest lands hr maintaining the forest land base and 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
Riparian Corridors. Wetlads, and Wildlife Habitat
C'.8 Local governments shall develop plans and programs which carefully manage
development on hillsides and in water bodies, and restrict development in wetlands
nn order to prevent erosion and protect the scenic quality, surface water and
groundwater quality, forest values, vegetation, and wildlife values of those areas.
The proposal o•u//not amend supersede, or violate any adopted regulations,plans, or programs that
manage development impacts on natural resources. The proposal will not compromise existing
established protection provisions in the SDC, will protect the amount of open space along the
ridgeline, and trill create a COMM/140hrest There are no documented occurrences of endangered
or threatened plant or wildlife species on the subject site There is one wetland site per the National
Wetland Inventor. which will he better protected from future development under the proposed
Parks and Open Space designation than the existing Low Density Residential designation THhA
Park will conserve forestland through a community demonstration forest, and the Regional Park
designation will protect the scenic quality of the hillside Based on these findings, the proposed
Amendments are consistent with the Environmental Resources Element.
Open Space
C. II'hen planning for and regulating development, local governments shall consider
the need for protection of open spaces. including those characterized by
.significant vegetation and wildlife Means of protecting open space include but are
not limited to outright acquisition, conservation easements, planned unit
development ordinances, .stean.side protection ordinances, open space tax
deferrals, donations to the public, and performance zo niz
'ORDINANCE NO. 6373
Page 16 of 20
EXHIBIT B
Willamalane currently manages approximately 783 acres of land in 3'parks and three undeveloped
properties, including two parks classified as Natural Area Parks. 'Environment'and 'Stewardship'
are two of iVillatnalane'.c Core I alue.s (2012 Plan. p. 8), and the 2012 Plan is guiding the proposed
development of THN4 Park One of the "General Parks and Natural Areas Strategies" in the 2012
Plan that is applicable to the proposed park and supports the policies in the Environmental
Resources Element of the Metro Plan is as fnllow.s.
- Work with interested parties to acquire and preserve natural areas for future generations. '
(2012 Plan, p. 2")
In addition,four 'Natural Area Park Strategies' m the 2012 Plan that will be applied to T HN.4 Park
support the goals and policies in the Environmental Resources Element of the Metro Plan.
'A39 Acquire and develop a system of natural-area parks that protects. conserves and
enhances elements of the natural and historic landscape that give the region as unique
sense of place ' (2012 Plan, p 39)
'.440 Develop comprehensive natural resource management plans for natural areas as a basis
for making acquisition, development and restoration decisions. ' (2012 Plan,p. 39)
A41. Provide opportunities for name-haled recreation, such as wildlife viewing, fishing.
hiking, bicycling, nature play'. etc ' (2012 Plan. p 39)
A42 Protect and enhance a variety of habitat types within IVillanmlane's park and open space
system. including upland and wildlife communities such as oak savannah. wetlands,
upland prairie and riparian forest. ' 12012 Plat. p 39)
These strategies are applicable to the proposed Amendments and subsequent park development The
park will be public regional open space, and will preserve vegetation and wildlife through
tralheads, trails. and a community demonstration forest The proposed Amendments
singlehandedly fucditate the project's development, which is inherently open space protection by
designation. Based on these findings, the proposed Amendments are consistent with the
Environmental Resources Element of the Akira Plan
Environmental Design Element
E 1 In order to promote the greatest possible degree of diversity. a broad variety of
commercial residential. and recreational land uses shall be encouraged when consistent
with other planning policies
E2 Natural vegetation, natural water features, and drainage-ways shall he protected and
retained to the maximum extent practical. Landscaping shall be utilized to en/lance those
natural features This policy does not preclude increasing their conveyance capacity in
an environmentally responsible manner
E 5 Carefully develop sites that provide visual diversity to the urban area and optimize their
visual and personal accessibility to residents.
The Environmental Design Element of the Metro Plan sets broad goals and policies for desired
qualities of life in the Eugene-Springfield area The proposed Amendments promote diversity by
increasing the amount of recreational land use in Springfield, and have the potential to offer the
first mountain hiking recreational area in the cup In addition, by converting land zoned Low
Density Residential to Parks and Open Space, natural vegetation can be protected and retained to
the maximimt extent practical The core use of the Natural Park as defined h y IVillumalane i.s far
ORDINANCE NO. 6373 '
Page 17 of 20
EXHIBIT B
wildlife habitat and natural resource conservation ' with an 80.20 split in land designated for
preservation versus land for recreation Preserved from development. the site can house a
community forest, and the single wetland located within the site boundary can he protected The
proposed Amendments also enable visual diversity by creating a richer interface between the urban-
rural boundary Based on these findings, the proposed Amendments are consistent with the
Environmental Design Element of the Metro Plan
Transportation Element
Transportation System Improvements Roadway's
Fla Address the mobility and safety needs of motorists, transit users, bicyclists,
pedestrians, and the needs of emergency vehicles when planning and constructing
roadway system improvements.
Springfield's 2035 Transportation System Plan (7SP) identifies two potential future roadway
projects in the vicinity of the subject site R-45 and R-46. R-45 focuses on improvements within the
.Jasper-Nitron area. all involves constructing multiple roadways between Bob Straub Parkway,
Jasper Road, and Aft I'ernmu Road R-46 addresses Bob Straub Parkway to Hountamgate Drive
and involves a new collector with a three-lane cross-section with sidewalks and bicycle facilities
The Springfield Conceptual Local Street Hap shows several figure local streets in the vicinity of the
subject site. These future streets include an extension of a private road off of IIeperhauser Road, a
connection between Afountwngate Drive and[South] 66th Street. and extensions and connections of
Jessica Street and [South] 69th Street Planned connections are also anticipated between Daisy
Street, Glacier Street, and [South) '9th Street Language included in Recital 16 of the MOP
between 447llonalane and City regarding the Thurston Hills Natural Area addresses future roadway
and street projects This language is included for reference
16. Portions of the urea included by I illamalane in the Thurston hills Natural Area Park are
identified for possible fume roadway extensions lin the Car's adopted Conceptual Street
Afap City acknowledges that all extensions depicted on the Conceptual Street Map may
not he needed given that the ifillamalane-owned property will not he developed for
residential uses, but that an access for the connectivity author public ,safety punpo.se.s may
he required us a condition of approval through the Afetro Plan amendment and zone
change process
The annexation agreement between (Iill analane and the City resulting from a separate request for
Annexation application approval of Map I--02-35-00 Lot 03602 will address future street
extensions Approval of the proposed Amendments will not disrupt roadway system improvements
or the inability and.safety needs of motorists, transit users, biyclists, pedestrians, and emergency
rehide.s.
Parks and Recreation Facilities Element
H I Develop a system of regional-metropolitan recreational activity areas based on a
facilities plan for the metropolitan area that includes acquisition, development, and
management programs The Metro Plan and system should include reservoir and lull
parks. the Willamette River Greenway, and other river corridors.
The Goal of the Parks and Recreation Facilities Element is to provide a variety of parks and
recreation facilities to serve the diverse needs of the commnity's citizens (Afetro Plan, 111-11-4).
The proposed Amendments are required to enable the acquisition of land for and development of a
Regional Park, and to father satisfy the need for a larger parks inventory in Springfield Based on
' ORDINANCE NO. 6373
Pau 18 of20
EXHIBIT B
these findings, the proposed Amendment is consistent trete the Parks and Recreation Facilities
Element of the A1ei ro Plan.
Citizen Involvement olvement Element
K 2 Maintain and adequate/•fund a variety of programs and procedures,for encouraging
and providing opportunities for citizen involvement in metropolitan area planning
issues Such programs should provide Jor widespread citizen involvement, effective
communication, access to technical information, and feedback mechanisms from
poheymakers.
The development of THNA Park has been characterized by citizen involvement from its inception to
its implementation The ifillamalane Park and Recreation Comprehensive Plan was updated in
2012, using Jeedback,from scorers, public events. and outreach activities This feedback sparked
the development of THNA Park and the project was listed in the 2012 Plan as a key arca of
development. Springfield-area voters approved Measure 20-199 in 2012, a $20 million
{fillamalane Park and Recreation District Bond to further support the project and fund expansion
of trails and preservation of parkland around hillsides, rivers, and streams. The Planning
Commissions of both Springfield and Lane County will meet jointly to review the proposal and will
accept public testimony on the proposal Citizens will also have the opportunity to participate in the
subsequent design process for amenities within TIM Park."
Finding 35: The adopted Metro Plan is the principal policy document that creates the broad
framework for land use planning within the City of Springfield. The City's adopted Zoning Map
implements the zoning designations of the Metro Plan diagram and localized Refinement Plans.
The subject property is not within an adopted Refinement Plan area so the Aletro Plan is the
prevailing Comprehensive Plan for the site. The Springfield 2030 Refinement Plan Residential Land
Use and Housing Element was adopted in 2011 as a refinement of the Metro Plain any proposed
amendment to the City's residential inventory must with this Springfield Comprehensive Plan
element in addition to those of the Metro flan Residential Land Use Element.
Finding 36: In accordance with Chapter IV —Metro Plan Review, Amendments, and Refinements,
the City's Comprehensive Plan is not designed or intended to remain static and unyielding in its
assignment of land use designations. To that end, provisions of Chapter IV, Policy 7.a, allow for
property owners and public agencies to initiate an amendment to the Metro Plan diagram to reflect a
change in circumstances or need. The applicant is proposing to amend the Metro Plan designation
for the subject propert\ from LDR to Parks and Open Space. and to concurrently rezone the property
from LDR and LMI to PLO. There are no conflicts created by this proposed diagram amendment
based on needed residential land inventories and. according to the applicant's narrative, the
proposed amendment addresses a deficit of public natural open space in the community. The
dexelopment of this land with recreational uses does not significant]) conflict with other land use
elements in the Metro Plan including residential, commercial, industrial, or government and
education. Therefore, Criteria B.1 has been met.
2. In cases where Springfield Comprehensive Plan applies, the amendment shall be consistent
with the Springfield Comprehensive Plan.
Applicant's Narrative' "The Springfield Comprehensive Plan is represented through the Metro
Plan All criteria for the Metro Plan have been met based on the preceding findings The proposed
Amendments are cons ictent with all applicable Metro Plan approval criteria "
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Page 19 of 20
EXHIBIT B
Finding 37: As previously stated herein, the subject property is subject to the policies of the
Springfield 2030 Refinement Plan Residential Land Ilse and Housing Element, which is an element
of the Springfield Comprehensive Plan The proposed amendment does not eliminate the surplus of
LDR designated lands identified in that element, and therefore the proposed amendment is
consistent with the Springfield Comprehensive Plan. Therefore, Criteria B.2 has been met.
Conclusion and Recommendation
Based on the applicant's narrative, the findings above, and the criteria of SDC 5.14-135 for approving
amendments to the Metro Plan, staff finds the proposed Metro Plan diagram amendment from LDR to
Parks and Open Space is consistent with these criteria. Accordingly, the Lane County and Springfield
Planning Commissions unanimously adopted recommendations of support for the proposal on June 6,
2017. which are included herein as Attachment 7.
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Pnae 30 of 7(1