HomeMy WebLinkAboutOrdinance 6196 06/18/2007
.
.
.
ORDINANCE NO. 6196 (General)
AN ORDINANCE AMENDING THE SPRINGFIELD ZONING MAP BY REZONING 56 ACRES
FROM CAMPUS INDUSTRIAL TO: COMMUNITY COMMERCIAL; MEDIUM DENSITY
RESIDENTIAL; AND MIXED USE COMMERCIAL ON LAND LOCATED NORTH OF
MARCOLA ROAD AND WEST OF 28TH/31sT STREETS.
THE COMMON COUNCIL OF THE CITY OF SPRINGFIELD FINDS THAT:
WHEREAS, Article 12 of the Springfield Development Code sets forth procedures for Springfield
Zoning Map amendments; and
WHEREAS, on September 29, 2006, the applicant initiated the following Springfield Zoning Map
amendment:
Rezone 56 acres of land from Campus Industrial to: Community Commercial (11 Acres); Medium
Density Residential (19 Acres); and Mixed Use Commercial (26 Acres), Case Number ZON 2006-
00054, Tax Lot 01800, Assessor's Map 17-02-30-00 and Tax Lot 02300, Assessor's Map 17-03-
..2t5-11 ;,and
~5 UAnw~
WHEREAS, on January 9,2007, staff determined to consider the application to be complete; and
WHEREAS, on March 14,2007, the applicant held a neighborhood meeting to explain the
proposed development to the nearby residents: and
WHEREAS, on March 27,2007, the Springfield Planning Commission held a work session and a
public hearing to accept testimony and hear comments on this proposal. A request was made to hold the
written record open for 7 days. The Planning Commission closed the public hearing and voted to hold the
written record open until April 3, 2007; allow rebuttal by the applicant and staff by April 1 0, 2007; and to
reconvene on April 17, 2007 to deliberate and make their decision; and
WHEREAS, on April 17, 2007, the Springfield Planning Commission accepted the written
materials into the record, deliberated and voted 5 in favor, 2 opposed, to forward a recommendation of
approval, with conditions to the City Council; and
WHEREAS, on May 7, 2007, the Springfield City Council held a work session and a public
hearing (first reading) to accept testimony and hear comments on this proposal. A request was made to
hold the written record open for 7 days. The City Council closed the public hearing and voted to hold the
written record open until May 14, 2007; allow rebuttal by any person submitting written materials by May
21, 2007; allow rebuttal by the applicant by May 29, 2007; and to reconvene on June 18, 2007 to consider
the written materials and deliberate.
WHEREAS, on June 18, 2007, the Springfield City Council considered the additional written
testimony and is now ready to take action on this proposal based upon the above recommendation and
the evidence and testimony in the entire record in the matter of adopting this Ordinance amending the
Springfield Zoning Map.
NOW THEREFORE, THE CITY OF SPRINGFIELD ORDAINS AS FOLLOWS:
Section 1: The above findings, and the findings set forth in Exhibit A and incorporated
herein by reference are hereby adopted.
Section 2: The Springfield Planning Commission and City Council added the following
Conditions of approval as allowed under SDC 12.040:
~
.
Condition of Approval #1
The submittal and approval of a Master Plan application prior to any development on the
subject site shall be required.
Condition of Approval #2
Submittal of documentation from the Department of State Lands and/or the Army Corps
of Engineers with the Master Plan application demonstrating the existing drainage ditch is
not a regulated watercourse/ wetland, and if necessary, submittal of a wetland delineation
for other wetlands that may be on the subject site.
Condition of Approval #3:
Submittal of a Master Plan application that incorporates the relocation of the existing
drainage ditch and conversion to a major water feature that will be an integral part of the
proposed development area shall be required. The construction of the entire water feature
must be completed as part of the Phase 1 development.*
* The applicant has stated that Phase 1 will include the home improvement center. This
means that this and all other conditions referencing "Phase 1" must be incorporated into
proposed Master Plan Phase 1 development.
Condition of Approval #4
.
Submittal of a Master Plan application that addresses compliance with the Drinking Water
Overlay District standards in SDC Article 17 and how these regulations will be applied for
each proposed phase.
Condition of Approval #5:
Submittal of a Master Plan application that addresses the relationship of the proposed
development to Willamalane's future park on the north side of the EWEB Bike Path and
an explanation of any coordination efforts with Willamalane concerning the timing and
development of the future park
Condition of Approval #6
Submittal of a Master Plan application that addresses coordination with EWEB to
determine if any easements are required in order to cross the EWEB Bike Path to access
the future park.
Condition of Approval #7
Submittal of a Master Plan application that shows the proposed home improvement
center building exterior design similar to the existing building in Scottsdale, Arizona as
depicted in the photographs of the exterior of the Scottsdale Center in the record, or a
building design that complies with the current building design standards in SDC Article 21.
Condition of Approval #8
Submittal of a Master Plan application that demonstrates that residential development will
occur at not less than 12 dwelling units per net acre.
.
.
.
.
Condition of Approval #9
Submittal of preliminary design plans with the Master Plan application addressing the
proposed mitigation of impacts discussed in the TIA. The plans shall show the proposed
traffic control changes allowing left-turns from the eastbound ramp center lane at the
eastbound ramps of the Mohawk Boulevard/Eugene-Springfield Highway intersection.
The intent of this condition is to have the applicant demonstrate to ODOT that the
proposed mitigation is feasible from an engineering perspective and will be constructed
on a schedule that is acceptable to ODOT. Provided that construction of the proposed
mitigation is determined to be feasible, then during Master Plan review and approval a
condition shall be applied requiring the mitigation to be accomplished prior to the
temporary occupancy of any uses in Phase 1 of the development.
Condition of Approval #10
Submittal of a Master Plan application that incorporates a "Development Phasing Plan"
shall be required in order to comply with SDC Section 37.030(12). The intent of this
condition is to:
a) Address the "internal trip" issue by requiring a certain percentage of the residential
portion of the site to be developed with a similar percentage of the commercial
portion. The specific percentages will be made part of the approved Master Plan, and
b) Ensure that, for each type of land use, the amounts proposed do not exceed those
shown in Table 4C of the TIA.
Condition of Approval #11
Submittal of a Master Plan application that shows the entire length of the collector street
from Marcola Road to V Street being constructed as part of Phase 1.
Condition of Approval #12
Submittal of a Master Plan application that shows the construction of all streets serving
the CC and MUC portions of the subject site being constructed shall be required as part
of Phase 1.
Condition of Approval #13
Submittal of a Master Plan application that shows proposed connectivity between the
residential and commercial development areas.
Condition of Approval #14
The Master Plan shall be submitted within one year of the City Council approval of these
applications.
Section 3: The Springfield Zoning Map is hereby amended from Campus Industrial to:
Community Commercial; Medium Density Residential; and Mixed Use Commercial, as more
particularly described in Exhibit A and incorporated herein by reference.
Section 4: The legal description of the entire property is specified in Exhibit B. The
proposed zoning is shown on the map in Exhibit C. The precise boundaries of the zoning districts
described in Exhibit A shall be determined as a condition of approval of the required Master Plan.
.
.
.
ADOPTED by the Common Council of the City of Springfield by a vote of ~ for and L-
against, this 18th day of June ,2007.
APPROVED by the Mayor of the City of Springfield, this 18tldayof June
ATTEST: & A
,2007.
:-' t ~. II ~W?(Y(CTJ
- , n -,:(1"1'\',
~~~r':\"..J L\~\M>
-" :;~.~:_ b I ,4. \ !.:):J
'; -:~ICE OF CITY ATTORNEY
ATTACHMENT 1
STAFF REPORT, FINDINGS AND ORDER
CITY OF SPRINGFIELD, DEVELOPMENT SERVICES DEPARTMENT
Applicant:
Satre Associates PC, Applicant, repres.enting SC Springfield, LLC
Requests: This is a consolidated staff report for amendments to the
Metro Plan diagram and the Springfield Zoning Map. These .
applications involve two parcels under common ownership totaling
100.3 acres (Assessor's Map 17-02-30-00, Tax Lot 01800 and 17-03-25-
11, Tax Lot 02300). . .
1. The Metro Plan Diagram Amendment proposes to change the
Campus Industrial portion of the subject site to . .
Commercial/Nodal Development Area, Community Commercial
and Medium Density Residential/Nodal Development Area. The
net effect on designatecfareas will be as shown below.
Existing and Proposed Plan Designations
. .
Acres
Existing Proposed
35.7 54.7
8.6 19.6
0.0 26
56.0 0.0
Total 100.3 100.3
/ND: Nodal Development Area Overlay 0.0 80.7 ..
Plan Designation
Medium Density Residential /ND
Commercial
Commercial/ND
Campus Industrial
%Change
53%
128%
n/a
-100%
Springfield Zoning Map Amendment Case Number ZON 2006-
00054 proposes to change the zoning from Campus Industrial to
Industrial to Community Commercial, Mixed Use Commercial
and Medium Density Residential. The net effect on zoning will
be as shown below.
2.
Existing and Proposed Zoning
Zoning District
Medium Density Residential
Community Commercial
Mixed-Use Commercial
Campus Industrial
Acres
Existing Proposed
35.7 54.7
8.6 19.6 .
0.0 26.0
56.0 0.0
100.3 100.3
Total
EXHIBIT A - PAGE 1
%Change
53%
128%
nla
-100%
Case Numbers:
LRP 2006-00027
ZON 2006-00054
Procedure Type:
Type IV - Metro Plan
diagram ame~dment.
Quasi-judicial zone
change raised to a Type
IV procedure
VICINITY MAP
II. EXECUTIVE SUMMARY
'.
The applicant is proposing to amend the Metro Plan diagram from Campus Industrial (CI) to
Commercial/Nodal Development Area (NDA). Community Commercial (CC) and Medium Density
Residential (MDR)/NDA; arid to amend the Springfield Zoning Map from CI to CC; Mixed Use Commercial
(MUC) and MDR. Attachment 2 includes diagrams showing the current and proposed Metro Plan .
designations and zoning. These applications are the first steps towards implementing a comprehensive
new development plan for the 100.3 acre site. .
Future applications include a Master Plan for the entire site which will address phasing of development
and the timing of infrastructure installation; individual Subdivision and Site Plan Review applications; and
other applicaJions. as necessary. The applicant cannot concurrently submit a Master Plan application
because the Metro Plan designation and zoning must be in compliance. Compliance will not be achieved
until these applications are approved. The applicant has included a "Preliminary Plan Illustration" (see
Attachment 4) that is intended to be a depiction of the future Master Plan for use with thes~ applications.
The "Pierce" property is listed in TransPlan as a potential nodal development area and was mentioned
among the areas considered by the City Council for formal designation as a node. The applicant's
Preliminary Plan Illustration includes elements consistent with nodal designation. The proposed
development will include design elements that support pedestrian environments and encourage transit
use, walking and bicycling; a transit stop which is within walking distance (generally % mile) of anywhere
in the node; mixed uses so that services are available within walking distance; public spaces, such as
parks, public and private open space, and public facilities, that can be reached without driving; and a mix
EXHIBIT A - PAGE 2
. of housing types and residential densities that achieve an overall net density' of at lease 12 units per net
acre. '
In 2001, the City Council denied a Metro Plan amendment on the "Pierce" property to site a Home Depot.
That application showed a "piece-meal" development proposal without a comprehensive development
proposal for the entire property. There was an approved Conceptual Development Plan for the Campus
Industrial portion of the subject site. However, that plan showed only proposed lot layouts and a street
system. The applicant's proposal shows specific plans for the commercial and residential development
that would replace the Campus Industrial designation and zoning.
The "Pierce" property has been marketed as an industrial site for many years. Various characteristics of
the site as well as changing market forces have worked against the developmeflt of the site. The .
proximity of the Kingsford Charcoal plant and potential vibration from the nearby rail spur has
dtscouraged high-tech development of the site. Market forces are affecting the types of development that
are attracted to campus industrial sites. Of the many employers located in the City's other Campus
Industrial site (Gateway), only one, Shorewood Packaging, is a manufacturing use.
The justification for converting the industrial portion of the subject site to commercial and residential uses
are described in more detail in the body of this report. Additional information on the history of the site and
changing market forces are also included.
Of the several criteria of approval that apply to these applications, compliance with: 1) State-wide
Planning Goal 9, "Economic Development"; and 2) State-wide Planning Goal 12, "Transportation" are
essential and therefore, are specifically discussed in this executive summary:
Compliance with State-wide Planninq Goal 9. "Economic Development".
The Home Depot Metro Plan diagram amendmenVzone change application (2001) proposed to change
7.79 acres from Campus Industrial to Community Commercial leaving approximately 48 acres of CI
designated and zoned land. There was significant neighborhood opposition to the development but the
request was denied by the City Council for the following reasons:
1) The reduction of the Clland use designation and the variety of high tech manufacturing sector family
wage jobs that might be lost as a result; and the fact that the Cldesignation was one of the City's
smallest inventories and could not easily replaced because the "high tech" industry demands large,
constraint-free campus-like settings. .
2) The apparent inconsistency of the Home Depot proposal with the intent of Policy 12 of the Economic .
Element of the Metro Plan, which states: "Discourage future Metropolitan Area General Plan
amendments that would change development ready lands (sites defined as short-term in the
metropolitan Industrial Lands Special Study, 1991) to non-industria/designations. 11
3) The then recently adopted Springfield Commercial Lands Study conclusions were used as a
substantial justification for the proposal. The fact that there was a shortage of vacant, developable
commercial land in Springfield was not at question. However, the proposal to increase this supply,
regardless of other relevant factors, was not sufficient reason to approve the proposal.
The issues cited above are still applicable and have been addressed by the applicant and staffs findings
primarily under the responses to Goals 9,10 and 12. There are also changes in circumstance pertaining
especially to the lack of industrial development in the Campus Industrial District that should be .
considered. These changes are discussed under the response to Goal 9.
While there appears to be more demand for commercial than industrial development currently, this fact
alone should not be the primary reason for the City Council to remove a "shovel ready" CI property in
exchange for commercial development. The Planning Commission and the City Council should
determine if the applicant and staff demonstrate that in order to comply with Statewide Planning Goal 9,
EXHIBIT A - PAGE 3
Metro Plan policies and adopted land inventories that Campus Industrial land should be converted to
commercial and residential and that conditions that applied during the Home Depot review process in
2001 have changed. Staff contends these issues have been addressed in this staff report and
recommends approval of these applications, with conditions. In making their decisions, the Planning
Commission and the City Council should consider the impact of piece-meal conversions on the future
availability of developable industrial land While using somewhat dated commercial and industrial land
surveys. .
'": ".
Comoliance with State-wide Planninq Goal 12. "Transoortation".
The applicant submitted information requesting a "trip cap" which can be implemented via a "Trip
Monitoring Plan" to demonstrate compliance with Goal 12 and which argues in favor of mixed use
development within a potential nodal development area. .
1) The Oregon Transportation Planning Rule requires metropolitan areas with populations under one ...,
million to plan for a 5 percent per capita reduction in vehicle miles traveled (VMT) over the 20 year
planning horizon. The revised TransPlan adopted by Springfield, Eugene and metro Lane County in
2001 allows for Nodal Development Areas as an alternative strategy to meet the VMT standard. The
City Council selected and adopted the Nodal Development Area concept after reviewing a preliminary .
assessment of several potential Nodal Development Area sites in 2003 (7B in Riverbend; 8Ain ..
Glenwood; 8B in Downtown Springfield; 9A in Mohawk; and 9H and 9J in Natron). Last year, a .
previous Metro Plan diagram/Zoning Map amendment application initiated a portion of Proposed.
Nodal Development Area 9C at 30ln and Main Streets. The TransPlan Potential Nodal Development
Areas map shows that the subject site is within the boundary of Proposed Nodal Development Area
7C. Area 7C has not been "officially" approved by the City Council. Upon approval, these applications
will 'add approximately 80 acres of MUC and MDR designated and zoned land to Springfield's
"official" Nodal Development Areas. .
2) The trip cap is an acceptable traffic capacity limitation tool allowed in the Transportation Planning
Rule. The trip cap establishes a "worst case" scenario for trips generated by the current zoning for the
entire site, in this case CI, MDR and CC. Trips generated by future MUC, MDR and CC uses cannot
exceed the established trip cap. The response to the Goal 12 criterion was reviewed and accepted, .
as conditioned, by Gary McKenney, Springfield Transportation Planning Engineer and Ed Moore from
the Oregon Department of Transportation's Springfield office (see Attachment 5). .
7.':0-'
I" STAFF/APPLICANT HISTORY
During the early stages of this development proposal, representatives of the current property owners (SC
Springfield LLC who purchased it in 2006 from the Pierce Trust) had several meetings with City staff
before applying for a Development Issues Meeting (ZON 2005-00028) in July, 2005. The owner's
representatives had several additional meetings with City staff and subsequently hired Satre Associates
to prepare the required land use applications. A Pre-Application Report (ZON 2006-00030), the
prerequisite for the submittal of a Master Plan, was submitted in May 2006. Staff requested that
application out of sequence to have "formalized development proposal" to comment on. Staff had a
number of concerns about that proposal and contracted with Crandall Arambula (an urban
design/planning firm in Portland which designed Hillsboro's Orenco Station development) for a peer
review of the application, which occurred in July, 2006. Crandall Arambula listed 6 suggestions: 1)
Relocate and redesign Main Street Retail; 2) Reconfigure the home improvement center site; 3) Include a
park as a focus and active recreation amenity for new residential development; 4) Include an off-street
pedestrian and bicycle trail system to provide safe and convenient access to "destinations" and
"attractions" on and off the project site; 5) Make the residential street configuration pedestrian friendly;
and 6) The residential buildings need a transition between the public and private realm. All but one of
Crandall Arambula's suggestions (the reorientation of the home improvement center from east-west to .
north-south due to a 42" sanitary sewer line) has been incorporated into the Preliminary Plan Illustration
(see Attachment 4). The Pre-Application Report application is on hold' until these applications are
approved. Satre Associates submitted these applications on September 29, 2006. These applications
EXHIBIT A - PAGE 4
were determined to be incomplete and staff met with Satre Associates on Octoper 24,2006 to discuss the
completeness issue. The additional information was submitted on December 21, 2006 and the
applications were determined to be complete for review on January 11, 2007.
Note: The Oregon Department of Land Conservation and Development (DLCD) is currently on record
stating that home improvementc~nters should not be permitted in industrial districts because it
would create "de facto mixed use districts". The applicant originally proposed that the
approximately 14 acre home improvement center site be designated and zoned Light-Medium
Industrial (LMI) based on a recent Planning Commission interpretation allowing this use in the
City's LMI, Heavy Industrial (HI) and Special Heavy Industrial (SHI) zoning districts. This means
a home improvement center can be sited only on property designated and zoned Commercial.
However, due to its size, this use is not allowed in the Mixed Use Commercial District; it can go
into the Community Commercial District. The proposed nodal development area will not include
the home improvement center site.
The applications were further revised on February 28 to change the requested LMI designation and
zoning to CC due to issues raised by DLCD. Finally staff met with DLCD representative Marguerite
Nabeta and the applicant to review DLCD comments made on March 12, 2007 (see Attachment 6).
Additional information has been added into this staff report (The Goal 9 response was revised dated.
March 17, 2007). andlor will be submitted prior to the public hearing.
111I PROPERTY DESCRIPTION/LAND USE HISTORY
. Property Description and Existing Conditions.
The subject site is located north of Marcola Road, west of 31st Street, east Mohawk Marketplace
Shopping Center and south of the EWEB bike path and is 100.3 acres in size. The applicant has
submitted the following information:
"Subiect Site:
The subject site has been used for a variety of agricultural uses. It is turrenily vacant, with the exception
of a small industrial building to the south of the subject site. The Springfield City Limits abuts the subject
site on small portions on the west and northeast. Tax Lot 2300 is partially developed with a vacant
industrial building. Tax Lot 2300 was platted in 1994 as Parcel 3 of land partition plat 94-P0491. A
property line adjustment was recorded with Lane County in 1997 affecting the common boundary
between Parcels 2 and 3 of Land Partition Plat 94-P0491 in so doing completing the current configuration
of the subject site (City of Springfield file# 97-02-029). Tax Lot 1800 is vacant. A storm drainage facility
runs through the center of the subject site running east to west. The storm drainage facility is proposed to
be enhanced through the process of development of the subject site. The site is located outside of both
the 100-year flood and 500-year flood areas (see Exhibit 7, FIRM Map 41039C1153F).
Additional detail on adiacent uses is as follows:
North. The property to the north of the subject site is separated by an EWES utility corridor that also
serves as a multi-use path. North of the EWES corridor is property owned by Willamalane Park and
Recreation District (Tax Lots 1500 and 2300), Briggs Middle School and Yolanda Elementary (Tax Lots
2200 and 3002) and single family residential properties. The properlies to the immediate'north are zoned
Medium-Density Residential with Public Land and Open Space zoning on the School. and part of the
Willamalane and EWES properties.
West. The property to the west is zoned and developed with low-density single-family residential
dwellings.
Southwest. The property to the southwest is zoned Community Commercial and is developed with a
variety of retail commercial uses including a grocery store and a bank.
EXHIBIT A - PAGE 5
South. The, property to the south is zoned and developed with low-density single-family residential.
dwellings. . .. .
Southeast. To the southeast are properties that are zoned for Light-Medium Industrial (across North 28th
Street) and Heavy Industrial (across Marcola Road). Several of these. properties are currently developed
with industrial uses. . . .
. . \'
. .
East. To the east (across North 2P}h Street) are properties zo~ed and developed with low-density single-
family residential dwellings. . .. " ... . . .. .
. -
. .
Land Use Historv.
Staff has prepared the following abbreviated land use history which is discussed here for two reasons: 1)
It establishes the existing plan designation and zoning acreages; and 2) it lists the Home Depot
applications Which were denied, an issue that has a direct bearing on the proposed applications.
The "Pierce" property originally stretched from 19th Street to 31st Street and beyond to the base of Mae
Mountain; and from Marcola Road to Briggs Middle School, north of the EWEB Bike Path. Since the
"Pierce" property was annexed in 1975, there have been approximately 40 plan designation/zoning and
development applications submitted to the City. However, only several of these applications are. .
discussed for reasons cited above: . .
82-10-028 The initial Zone Change application established 15 acres of Community Commercial extending.
from the corner of 19th Street and Marcola Road eastward a distance of approximately 1350 feet; 48.7
acres of Medium Density Residential; 59.4 acres ol Special Light Industrial (now Campus Industrial); and
25 acres of Light-Medium Industrial (located east of the subject site). There was 17.5 acres of Low
Density Residential that was not rezoned. The City Council adopted Ordinance 5160 on June 6,1983.
Conditions of zoning approval included: . .
a) The dedication of land for a park of at least 5 acres in the vicinity of the EWEB Bike Path with access
to a public street and the bike path.1 ' . . .
b) The creation of a new street to smooth the transition between 28th and 31st Streefs.t"'-
c) A "collector" street beginning opposite V Street for approXimately 1900 feet and then turning south to .
connect with Marcola Road to serve as the boundary between the Campus Industrial and the Medium
Density Residential zoning.3
2
3
The last Campus Industrial Conceptual Development Plan (98-02-047) approved in 1999 stated that8
acres were dedicated for park use in 1993. This park land, which remains undev~!oped, is listed in
Willamalane's Park and Recreation Comprehensive Plan as a proposed Neighborhood Park. See
also the discussion under State-wide Planning Goal 8. .
The Pierce Trust dedicated the right-of-way and the 28th /31st Connector was constructed in 1993.
The collector street (V Street to Marcola Road- TransPlan Chapter 3, Page 21) is shown on the
TransPlan Federally Designated Roadway Functional Classification Map and as Project # 777 on the
Financially Constrained Roadway Projects Map in Appendix A of TransPlan. See also the discussion
under State-wide Planning Goal 12 concerning both this issue and Potential Nodal Development Area
7C.
. 1
95-02-036 This City initiated Metro Plan amendment and Zone Changes eliminated inconsistencies
between the zoning approved by Ordinance 5160 and the updated 1987 Metro Plan diagram. Ordinance
5785 was adopted by the City Council on May 15, 1995. This application also:
a) Added 5 acres of Community Commercial zoning along Marcola Road, taken from the Medium
Density Residential zoning;
EXHIBIT A - PAGE 6
b) Changed the Low Density Residential/Medium Density Residential zoning shown in AtIee Park North ,
to Low Density Residential; . . .
c) Showed the future park zoned entirely PLO; and
d) Did not change the Campus Industrial. designation and zoning shown on Map 4, Area1 at this time
(see 96-10-208). .
Ordinance 5785 also required specific landscaped buffer areas applicable to all future development.
96-10-208 This City initiated Metro Plan Amendment and applicant initiated Zone Changes application
eliminated additional zoning and plan diagram inconsistencies. The zone changes were from:
a). Community Commercial to Medium Density Residential for 1.28 acres (extending the residential
zoning to the south) so that the northern boundary of the commercial zoning would be located within.
a 20 foot-wide sanitary sewer easement; and
b) Campus Industrial to Community Commercial for 1.28 acres (extending the commercial zoning east)
to keep the commercial zoning at the same acreage. The zone changes were approved by the
Planning Commission on February 19, 1997
The Metro Plan diagram amendment was from Heavy Industrial to Light-Medium Industrial for 11.5 acres
located east of the 28th/31S1 Street connector and north of Marcola Road. Ordinance 5851 was approved
by the City Council on April 7, 1997 (Note: these 11.5 acres is outside of the boundary of the subject
property). <-~~-
97 -02-029 This Property Line Adjustment moved the common property line of Parcels 2 and 3 of Partition
Plat 94-P0491 approximately 142 feet to the west to allow the existing drainage ditch to be entirely on
Parcel 3. The survey was recorded at Lane County on April 3, 1997.
The current acreages are as follows: 1) Community Commercial 8.8 acres; 2) Campus Industrial 56
acres; and 3) Medium Density Residential 35.5 acres.
00-12-254 Metro Plan Amendment application. Home Depot requested a Metro Plan diagram
amendment from Campus Industrial to Community Commercial for 7.79 acres. On June 18, 2001 the City
Council voted 4-1 with one absent to deny the request. The approval of concurrent zone change and Site
Plan Review applications was dependent upon the adoption of the Metro Plan diagram amendment.
Since the City Council denied this application, those applications were denied also.
I IV. APPLICATION TEAM
Owner/Applicant: .
SC Springfield, LLC
5440 Louie Lane, Suite 102
Reno, Nevada 89511
Attn: Jeff Belle
The property owner has put together the following development team:
Project Developer:
The Martin Company
PO Box 1482
Albany, Oregon 97321
Attn: Bob Martin.
EXHIBIT A - PAGE 7
Planner/Landscape Architect:
Satre Associates, P.C.
Planners, Landscape Architects and Environmental Specialists
132 East Broadway, Suite 536
Eugene, Oregon 97401
Attn: Richard M. Satre, ASLA, AICP
Architect:
Waterbury Shugar Architecture LLC
225 West 5th Avenue
Eugene, Oregon 97401
Attn: Richard Shugar, AlA
Civil EngineerlSurveyor: .
K & D Engineering, Inc.
PO Box 725
Albany, Oregon 97321
Attn: Dan Watson, PE
Transportation Engineer:
Access Engineering, LLC
134 East 13th Avenue, Suite 2
Eugene, Oregon 97401
Attn: Mike Weishar, PE
_I Vi PROPOSED DEVELOPMENT
The applicant states that: "This PAPA, submitted concurrently with the zone change application, is in .
preparation for appropriate land use permit applications to construct a mixed-use residential, and .
commercial development as described herein. The appropriate land use permit applications include [but, .
are not limited to] Master Plan Review and Traffic Impact Analysis Review.
Although applications for Master Plan, Subdivision and 'Site Plan approvals would be premature at his
time, elements of the anticipated Preliminary Plan Illustration are material to the current application To
provide specific information about the intended mixed-use development and its relevance to the current
application, a Preliminary Plan Illustration has been submitted as [Attachment 4] and as described below.
.., The Villages at Marcola Meadows is a proposed mixed-use development comprised of residential,
office and retail villages. Referencing the dramatic wooded backdrop of the Coburg and Marcola hills to
the north, and the large plane orvalley floor meadow on site, Marcola Meadows has been conceived to
blend in with this overall setting while creating a bridge and supportive transition in the scale and intensity
of larger commercial uses to the south with quiet residential neighborhoods to the north. Within Marcola
Meadows a suite of eight Villages will exist. Four residential villages comprised of single family homes,
apartment homes, townhomes and an assisted living facility with senior cottages will occupy the northern
extent of the site, buffering existing residential developments to the northwest, north, and northeast. One
office village, consisting of professional offices, will occupy the southeast area. Three retail villages,
general retail, neighborhood retail, main street retail will face 28th Street and Marcola Road. Each of the
Villages is envisioned to be unique, yet part of the whole. The overall Meadows theme will appear
throughout, with the use of-meandering waterways, native plans and generous open space. Within each
Village, Pacific Northwest design aesthetic will prevail, supported with the generous use of stone, wood
and steel. Marcola Meadows will not only be a great place to call home, but an exciting place to shop;
with specialty retail shops and unique dining venues. Stores will have welcoming front doors, large
. windows and high ceilings, all with natural materials and muted colors. It will be easy to get around, and.
to do so on foot. All streets will have wide sidewalks, many of them setback from vehicle traffic. The
entire community will be connected with all-weather multi-use off street pathways. It will be convenient,
and safe, to walk from one Village to the next. It will be a great place to be outdoors, with meadow-
flavored open spaces, native plant communities, lighting, bridges, seating, and overlooks to support
EXHIBIT A - PAGE 8
walking and relaxing. It will be a healthy place; with ample use of oxygen-generating trees to cleanse the
air, catch the wind and cool the temperature. It will be an environmental place, utilizing a network of
bioswales, shallow seasonal ponds, and a meandering drainageway to capture and cleanse stormwater.
In all, The Villages at Marcola Meadows will not only be a great addition to the community but a wise use
of land and smart approach to design. "
I VI. TYPE OF METRO PLAN AMENDMENTrrHE ZONING MAP AMENDMENT AS A TYPE IV REVIEW
1) This Metro Plan diagram amendment application involves the site-specific amendment of the Metro
Plan diagram from Campus Industrial to Campus Industrial portion of the subject site (currently 56
acres) toCommercial/Nodal Development Area, Community Commercial and Medium Density
Residential/Nodal Development Area. This Metro Plan amendment is a Type II amendment as
defined in SDC Section 7.030 because it does not have "regional impact" by:
"(a) Changing the urban growth or the jurisdictional boundary of the Metro Plan because the
subject site is within the city limits;
(b) Requiring an exception to a State-wide goal; and
(c) . Requiring a non-site specific amendment of the Metro Plan text."
This Metro Plan amendment is a Type II amendment as defined in SDC Section 7.030 because it is a
site specific diagram amendment; not a specific text amendment:
"(a) Amendment of the Metro Plan diagram; and
(b) Is a site specific text amendment. "
2) SDC 12.020(1 )(a)1. states: "...Zoning Map amendments shall be reviewed as follows:
(a) Legislative Zoning Map amendments involve broad public policy decisions that apply to other
than an individual property owner, generally affecting a large area and/or require a concurrent
Metro Plan diagram amendment as specified in Article 7 of this Code. Legislative Zoning Map
amendments shall be reviewed using Type IV procedure.
1. Metro Plan diagram amendment determination. An amendment to the Metro Plan diagram shall
be required'if the proposed Zoning Map amendment is not consistent with the Metro Plan
diagram. Both amendments may be processed concurrently. "
The applicant has submitted the Zoning Map amendment application concurrently with the Type II Metro
Plan diagram amendment application.
Type of Metro Plan Amendment Conclusion and Finding:
Springfield is the "home city" for this proposal because the subject site is located within the city limits and
the application does not have regional impacts. Therefore. the consideration of the Metro Plan
amendment request is the exclusive responsibility of the Springfield City Council. However, referrals
have been sent to both the Eugene and Lane County Planning Directors as specified in SDC Section
7.050. .
I VII. PROCEDURAL REQUIREMENTS
Procedural requirements for: Metro Plan diagram amendments are described in SDC Article 7; Springfield
Zoning Map amendments are described SDC Article 12; and notice requirements are described in SDC
Article 14.
SDC Article 7 indicates that the City Council or a citizen can initiate Metro Plan diagram amendments.
These amendments of are reviewed under a "Type IV" procedure and require public hearings before the
Planning Commission and the City Council. Type IV procedures are detailed in SDC Section 3.100,
EXHIBIT A - PAGE 9
SDC Article 12 indicates that the Planning Director, Planning Commission, City Councilor a citizen can
initiate Zoning Map amendments. These amendments are reviewed under a "Type IV" procedure when
combined with a Metro Plan diagram amendment and require public hearings before the Planning .
Commission and the City Council. Type IV procedures are detailed in SDC Section 3.100. .
SDC Section 14.030(2) requires that legislative land use decisions be advertised in a newspaper of .
general circulation, providing information about the legislative action and the time, place and location of
the hearing. In addition, notice is required to be mailed to all property owners and occupants within 300
feet of the subject site.
The applicant submitted applications that have similar criteria of approval. Where the applicant's
submittal responds to a similar criterion is used in another application, staff will reference the location of ,
that response. Where the applicant's submittal responds to a criterion that is not used in another .
application, staff will address that response as such. . ..
Procedural Requirement Conclusion and FindinQs:
Satre Associates, representing SC Springfield, LLC has initiated these applications. The Metro Plan .
diagram is a Type IV review procedure and the quasi-judicial Zoning Map amendment has been raised
from a Type III review procedure to a Type IV review procedure for concurrent review.
"Notice of Proposed Amendment" was mailed to the Department of Land Conservation and Development
(DLCD) on February 8, 2007, alerting the agency of the City's intent to amend the Metro Plan diagram
and Springfield Zoning Map. The notice was mailed more than 45 days in advance of the first evidentiary
hearing as required by ORS 197.610. Due to the applicant's decision to change the originally proposed
LMI designation and zoning to CC for the home improvement center portion of the subject site, revised
documents reflecting these changes were mailed to DLCD on March 6, 2007. .
Referral of the proposed Metro Plan amendment was sent to Eugene and Lane County on March 16,
2007 as specified in SDC Section 7.050.
Notice of the public hearings con~rning these applications was mailed to property owners and residents
within 300 feet of the subject site on March 15, 2007. Notice of the public hearings concerning these
applications was published on March 16, 2007 in the Register Guard. These notices advertised both the
hearing before the Springfield Planning Commission on March 27, 2007 and the City Council on April 16,
2007. The content of the notices followed the direction given in SDC Section 14.030(2) for legislative
actions and the direction given in ORS 227.186.
Procedural requirements described in SDC Articles 7,12 and 14 have been followed as well as notice
requirements established by DLCD for legislative applications.
I VIII. DECISION CRITERIA AND FINDINGS
The Metro Plan diagram and Zoning Map amendments have been combined into one staff report for ease
of review. Both applications have criteria requiring consistency with State-wide Planning Goals and Metro
Plan policies. Rather than repeat these criteria for each application, they will be addressed only once and
then referenced where appropriate. Criteria that are different will be addressed separately; the end result
wi!! be that all applicable criteria will have been addressed and findings prepared.
IX. METRO PLAN AMENDMENT CRITERA AND FINDINGS
Article 7 describes the criteria to be used in approving a Type II Metro Plan amendment. SDC Section.
7.070(3) states that "The following criteria shall be applied by the City Council in approving or
denying a Metro Plan amendment application: (a) The amendment must be consistent with the
relevant statewide planning goals adopted by the Land Conservation and Development
EXHIBIT A - PAGE 10
Commission; and (b) Adoption of the amendment must not make the Metro Plan internally
inconsistent. "
SDC Section 7.070(3) U(a) The amendment must be consistent with the relevant statewide planning
goals adopted by the Land Conservation and Development Commission; and"
GOAL 1: CITIZEN INVOLVEMENT
"To develop a citizen involvement program that insures the opportunity for citizens to be involved
in all phases of the planning process."
Applicant's Submittal:
T~e City of Springfield has an acknowledged citizen involvement program and an acknowledged process
expressed in the Springfield Development Code for securing citizen input on all proposed zone map
amendments. It insures the opportunity for citizens to be involved in all phases of the planning process
and sets out requirements for such involvement. The amendments proposed do not amend the
acknowledged citizen involvement program. The process for adopting these amendments complies with
the requirements of the citizen involvement provisions.
The Metro Plan contains an acknowledged citizen involvement program satisfying Goal 1. The citizen
involvement program is in Metro Plan Chapter 1/1, pp. /II-K-1 to /II-K-4. The proposed amendment
complies with and does not affect or amend the citizen involvement element in the Metro Plan.
.-:-...- .
The Metro Plan diagram amendment is subject to the public notification and public hearing processes
provided for Type IV application procedures as stipulated in SDC 3.100(1) through (7), which, along with
the remainder of the Code and with State-wide Goals and state statutes, provide the provisions for citizen
involvement. .
The City's acknowledged program for citizen involvement, including public-notice, public hearings at the
level of the planning commission and city council, notification of decision and notification of the right of
appeal, provides citizens the opportunity to review and make recommendations in written and oral
testimony on the proposed amendments to the Metro Plan Diagram and on the proposed zone map
amendment. These acknowledged citizen involvement provisions afford ample opportunity for citizen
involvement consistent with Goal 1. :
For the reasons cited, including the Metro Plan's and the City of Springfield's acknowledged programs for
citizen involvement, the amendmentis consistent with Goal 1. " .
Staff's Response:
Staff concurs with the applicant's submittal. Goal 1 requires a citizen involvement program. The applicant
has described that program above and staff concurs with that discussion. Combined Metro Plan diagram
and Zoning Map amendments require an initial public hearing before the Planning Commission and a
legislative public hearing before the City Council. DLCD and neighborhood notice of these hearings,
including local jurisdiction referral was provided as described in Section VI. (Procedural Proceedings) of
this staff report. '
In addition, the applicant held a neighborhood meeting 'on March 14, 2007. The applicant mailed notice of
this meeting to: all property owners within 300 feet of the subject site (the same notice area as mandated
to the City by the State); individuals on staffs interested persons list; and to affected public agencies.
Approximately 40 people attended.
Staff Finding:
These applications comply with Goal 1 because they are being 'reviewed under an acknowledged citizen
involvement program and public notice procedures were complied with. .
EXHIBIT A - PAGE 11
GOAL 2: LAND USE PLANNIN~
"To establish a land use planning process and policy framework as a basis for a/l decision and
actions related to use of land and to assure an adequate factual base for such decisions and
actions. " .. .
Applicant's Submittal:
. . '.
. . ".' .
"Goal 2 requires that plans be coordinated with the plans of affected governmental units and that
opportunities be provided for review and comment by affected governmental units. .In order to comply with
the Goal 2 coordination requirement, the City will.be responsible for coordinating the adoption of this
amendment by providing notice to all affected governmental units and responding in its findings to the
legitimate concerns of affected governmental units. There are no Goal 2 Exceptions required. .
The Eugene/Springfield Metro Area General Plan (Metro Plan), the Springfield Code, and the State-wide
Planning Goals and applicable state statutes and administrative regulations, provide policies and criteria
for the evaluation of plan amendments. Compliance with these measures assures an adequate factual
base for approval of the amendment. As discussed elsewhere in this document, the amendment is
consistent with the Metro Plan, the Springfield Code, and the State-wide Goals. Therefore, the
amendment is consistent with Goal 2."
Staffs Response:
Staff concurs with the applicant's submittal. On August 23, 1982, DLCD acknowledged that the Metro .
Plan and the all implementing meas.ures were found to be in compliance with the State-wide Planning
Goals pursuant to ORS 197.245 and 197.250. This act established, for the Eugene-Springfield
metropolitan area and for Springfield in particular, a land use planning process and policy framework for
all decision and actions related to use of land and assurance for an actual factual base for such decisions
and actions. The Metro Plan has been amended several times since 1982. The SDC was adopted in
May 1986 and also has been amended several times. The SDC implements the policies and direction of
the Metro Plan. .
ir, addition, the Metro Plan and the SDC contain guidelines and regulations for amendments, including
making a distinction between the "type" of Metro Plan amendment (either a "I" or a "II"), who mayor must
participate as decision-makers (home city~ regional impact), and how each level of amendment is
processed. These applications are being reviewed under a Type II Metro Plan amendment procedure.
Notification of these applications has been ~ent to both Eugene and Lane County.
Furthermore, various adopted refinement plans and specific area plans, including TransPlan, provide
more detailed direction for planning under the umbrella of the Metro Plan. TransPlan guides regional
transportation system planning and development in the Eugene-Springfield area. TransPlan was last
amended in December 2001 with the goal of reducing vehicle miles traveled. Consistent with this goal,
the applicant is proposing to apply the Metro Plan "Nodal Development Area" land use designation to
the subject. This land use designation emphasizes "... a mix of diverse and compatible land uses
and public and private improvements designed to be pedestrian and transit oriented." The subject
site is within TransPlan Potential Nodal Development Area 7C (See the response to Goal 12).
..~ .
As the hearing process evolves from the Planning Commission to the City Council, the record of the
hearings will include all testimony and factual evidence intended to support the decision:
Finally, the SDC requires affirmative findings in support of the applicable criteria in order to approve these
applications. The application of the implementing zoning districts will be consistent with the Metro Plan
diagram and any applicable Metro Plan text. Citations of Metro Plan compliance are included in this
report under criterion SDC Section 7.070(3)(b).
EXHIBIT A - PAGE 12
Staff FindinQ:
These applications comply with Goal 2 because the SDC requires consistency between the State-wide
Planning Goals, the acknowledged Metro Plan, adopted refinement plans and special area plans and .
consistency with the local jurisdiction's zoning.
GOAL 3: AGRICULTURAL LAND
"To preserve and maintain. agricultural lands. "
Goal 3 defines "agriculturallands" by stating, in part, that they: "... do not include land within.
acknowledged urban growth boundaries or land within acknowledged exceptions to Goals 3 or 4. "
Applicant's Submittal:
"This goal applies to lands that are designated Agricultural. This amendment is for property located within
the city limits of Springfield and does not affect land designated for agricultural use. Therefore, Goal 3 is .
not applicable or relevant to the amendment. "
Staff's Response:
Staff concurs with the applicant's submittal. The subject site is located within the city limits on land
planned and zoned for urban use for over 30 years. The City does not have any agricultural zoning
districts, either within its city limits or within the urban growth boundary.
Staff Finding:
. .~,....
Goal 3 does not apply to these applications because the subject site is within Springfield's city limits and
the City does not have any agricultural lands.
GOAL 4: FOREST LANDS
"To conserve forest lands by maintaining the forest land base and to protect the state's forest. .-. ,""'
economy by making possible economically efficient forest practices that assure the continuous.
growing and harvesting of forest tree species as the leading use on forest land consistent with
sound management of soil, air, water, and fish and wildlife resources and to provide for
recreational opportunities and agricu/ture."
Applicant's Submittal:
"This amendment is for property located within the city limits of Springfield and does not affect land
designated for forest use. Therefore, Goal 4 is not applicable or relevant to the amendment. n
Staff's Response:
Staff concurs with the applicant's submittal. The subject site is located within an acknowledged urban
growth boundary. Goal 4 does not apply within urban growth boundaries.
Staff Finding:
Goal 4 does not apply to these applications because the subject site is within Springfield's city limits and
the City does not have any forest lands.
GOAL 5: NATURAL RESOURCES, SCENIC AND HISTORIC AREAS, AND OPEN SPACES
"To protect natural resources and conserve scenic and historic areas and open spaces. "
EXHIBIT A - PAGE 13
Applicant's Submittal:
"Pursuant of Goal 5, the City of Springfield has adopted the following documents:
. Eugene-Springfield Metropolitan Area General Plan, revised 2004
. City of Springfield, Local and National Wetlands Inventory Map, December 2005
. City of Springfield Natural Resourte Study, adopted, November 2005
. Oregon Administrative Rule 660-023-0250 establishes the applicability of Goal 5 rules to Post
Acknowledgement Plan Amendments (PAPA), and specifies certain procedures and requirements for.
. local governments to follow in the adoption or amendment of all plan or land use regulations pertaining to
Goal 5 resources. The rule states:
"(3) Local governments are not required to apply Goal 5 in consideration of a PAPA unless the PAPA
affects a Goal 5 resource. For purposes of this section, a PAPA would affect a Goal 5 resource only if:
(a) The PAPA creates or amends a resource list or a portion of an acknowledged plan or land use
regulation adopted in order to protect a significant Goal 5 resource or to address specific requirements of
Goal 5;
"
(b) The PAPA allows new uses that could be conflicting uses with a particular significant Goal 5 resource
site on an acknowledged resource list; or .
(c) The PAPA amends an acknowledged UGB and factual information is submitted demonstrating that a
resource pite, or the impact areas of such a site, is included in the amended UGB area. II
The following discussion will demonstrate that the proposed PAPA does not raise any issues that would
require the. City of Springfield to apply Goal 5.
Firstly addressing OAR 660-023-250(a): The changes sought by this application do not create or amend a
resource list or any portion of an acknowledged plan or land use regulation adopted in order to protect a
significant Goal 5 resource on the subject site.
""!i:. .
Secondly addressing OAR 660-023-250(b): The changes sought by this application will not allow new
uses that could conflict with a significant Goal 5 resource site. There are no significant Goal 5 resources
on the site itself. None of the various studies, inventories, refinement plans, and facilities plans list this
. specific site as a significant resource, apply a Goal 5 resource overlay, or otherwise regulate or limit the
redevelopment of this site as a Goal 5 resource.
There is drainage ditch on the site that was inventoried and listed (M32) by the City of Springfield Natural
Resource Study. . It was classified as a Low Quality Wetland and did not meet the significance criteria of
the Oregon Freshwater Wetland Assessment Methodology. The closest Goal 5 resource identified by the
City of Springfield Natural Resource Study is the Irving Slough located approximately 550 feet to the east.
It is listed as both a High Quality Riparian Resource Site (S20 and S21) and a Moderate Quality Wetland
(M16b and M16c). However, the resource impact area, defined by the study, does not reach the subject
site. Therefore, the uses allowed by the proposed PAPA will not conflict with a Goal 5 resource.
Lastly addressing OAR 660-023-250(c): The changes sought by this application do not amend the
acknowledged Cityof SiJrlngfield Urban Growth Boundary. Therefore, with regard to this criterion, the City
is not required to apply Goal 5. .
Oregon Administrative Rule 660-023-0250 "Applicability" stipulates that local governments are required to
apply Goal 5 when considering a Post Acknowledgment Plan Amendment if the amendment affects a
Goal 5 resource. For the purposes of that rule, the section lists three circumstances (OAR 660~023-
0250(3)(a), (b), and (c) quoted above) under which, and only under which, a Post Acknowledgment Plan
Amendment would affect a Goal 5 resource. As evidenced above, none of the three circumstances are
EXHIBIT A - PAGE 14
raised by the proposed amendment, and therefore the amendment will not affect a Goal 5 resource. The
City is not required to apply Goal 5 when considering the proposal. The City of Springfield can find that
the action requested by this application is consistent with State-wide Planning Goal 5. "
Staff's Response:
Staff concurs with the applicant's submittal. Goal 5 protection begins with an acknowledged inventory of
Goal 5 resources and then proceeds through an economic, social, environmental and energy analysis to
determine whether the resource should be protected from conflicting uses; limit conflicting uses; or allow
conflicting uses fully (OAR 660-016-0010). The City has an acknowledged historic structures inventory, a
local wetland inventory and recently adopted a natural resources inventory that considered uplands,
wildlife habitat and riparian corridors. The subject site has been planned and zoned for intensive urban
development and use prior to Metro Plan acknowledgement in 1982 (see Section II of this staff report,
Ptoperty Description/Land Use History). The Department of State Lands and the Army Corps of .
Engineers have determined that the existing drainage ditch did not fall under either agency's jurisdiction
during the review Home Depot applications in 2001, but that determination has expired. For the record,
the existing drainage ditch and any potential wetland andlor riparian issues on other portions of the
subject site must be addressed during the Master Plan application process (a condition of approval of
these applications).
Staff FindinQ:
As conditioned, these applications comply with Goal 5 because it has been demonstrated that there are .
no inventoried resources on the subject site. However, the applicant shall obtain documentation stating .
that the existing drainage ditch is not a regulated wetland and confirm if there are any other wetland areas
. on the subject site.. .
Condition of Approval #1
The submittal and approval of a Master Plan application prior to any development on the subject site.
Note: The applicant has stated the property owner's intent to submit a Master Plan application. Rather
than require a separate Memorandum of Understanding or similar document at this time, staff is
highlighting potential development issues as part of these applications that must be addressed during the
Master Plan approval process. The Metro Plan diagram and Zoning Map amendment applications are
concurrent. SDC Section 12.040 gives the City authority to add conditions "...as may be reasonably
necessary in order to allow the Zoning Map amendment to be granted. II The Master Plan application
process will require a public hearing and approval by the Planning Commission. This note applies to all of
the additional conditions of approval.
Condition of Approval #2
Submittal of documentation from the Department of State Lands and/or the Army Corps of Engineers with
the Master Plan application demonstrating the existing drainage ditch is not a regulated watercoursel
wetland, and if necessary, submittal of a wetland delineation for other wetlands that may be on the
subject site. '
GOAL 6: AIR, WATER AND LAND RESOURCES QUALITY OAR 660-015-0000(6)
liTo maintain and improve the quality of the air, water and land resources of the state. II
. Applicant's Submittal:
"Nothing in the proposal or the character of the site or potential uses indicates a future development that
would compromise air, water and land resources. Future development of the site will be in conformance
with local, state and federal law including aspects of the Springfield Code. As indicated in findings
_EXHIBIT A - PAGE 15
regarding Goal 11, incorporated herein by reference, options for accessing ot providing the necessary
urban seNices are available. Therefore, the amendment is consistent with Goal 6.
Goal 6 requires all waste and process discharges from existing and future development to be consistent
with applicable state for federal environmental quality statutes. Specifically, it requires local governments
to establish that there is a reasonable expectation that a proposed use will be in compliance with the
applicable state and federal environmental quality standards (Friends of the Applegate v. Josephine
County, 44 Or LUBA). . .
There are three federal environmental quality acts relevant to State-wide Planning Goal 6: Clean Water,
Clean Air, and the Resource ConseNation and Recovery Acts1. These acts are enforced by the. .
Environmental Protection Agency (EPA) to maintain air, water, and land resource quality.
The EPA delegates authority to Oregon Department of Environmental Quality (DEQ) to enforce federal
environmental statutes in the State of Oregon (i.e. Clean Air Act, Clean Water Act, and, Resource '
ConseNation and Recovery Act). The DEQ administers the federal statutes (acts) through the Oregon.
Administrative Rules (OAR), Oregon Revised Statutes (ORS), and Department programs.
The OARs regulate noise control, groundwater quality protection, solid waste, hazardous waste .,
management, ambient air quality standards, and transportation conformity. The ORSs provide procedures
for compliance with sewage treatment and disposal systems, solid waste management; reuse and
recycling, hazardous waste and hazardous materials, noise control, and air and water quality standards.
At the local level, the Eugene-Springfield Metropolitan Area General Plan (Metro Plan) contains policies
related to Goal 6 that maintain air, water and land resource quality in the metropolitan area and .are as
follows: . .
.lIo".:....~.
C.25 Springfield, Lane County, and Eugene shall consider downstream impacts when planning for
urbanization, flood control, urban storm runoff, recreation, and water quality along the Willamette and
McKenzie Rivers.
C.26 Local governments shall continue to monitor, to plan for, and to enforce applicable air and water
quality standards and shall cooperate in meeting applicable federal, state, and local air and water quality
standards.
..:..;'~. -
C.2? Local governments shall continue to cooperate in developing and implementing programs necessary
to meet air quality standards. This effort should include but not be limited to:
a. Review of all major public capital expenditure projects for potential air quality
impacts.
b. Integration of air quality concerns into the comprehensive land use plan.
c. Active participation in developing and implementing additional controls, as needed.
Supplemental to the Metro Plan is the Central Lane Metropolitan Planning Organization Regional
Transportation Plan (RTP). This plan is the federal Regional Transportation Plan for the Eugene-
Springfield metropolitan area. A plan as such, must comply with the federal Transportation Equity Act for
the 21st Century (TEA 21), National Ambient Air Quality Standards, and the State of Oregon
Transportation Planning Rule (TPR). Additionally the RTP must demonstrate consideration for system
preseNation and efficiency, energy conseNation, and congestion relief.
I The Clean Water Act establishes the basic regulatory structure for regulating discharges of pollutants in the waters
of the United States. The Clean Water Act is implemented through industry standards and requirements. The Clean
Air Act regulates air emissions from area, stationary, and mobile sources. This Act sets maximum pollutant
standards and directs states to develop state implementation plans (sips) applicable to appropriate industrial sources.
Finally, the Resource Conservation and Recovery Act controls hazardous waste from the "cradle-to-grave", which
includes the generation, transportation, treatment, storage, and disposal of hazardous waste. This act also sets forth a
framework for the management of non-hazardous wastes.
EXHIBIT A - PAGE 16
The proposed Post Acknowledgement Plan Amendment (PAPA) does not amend any of the Regional ..
Transportation Plan goals, objectives, orpolicies. Future land use planning applications (Conditional Use
Permit and Site Plan) will conform to federal, state, and local regulations related to State-wide Planning
Goal 6. Further, when land use approvals are procured, at that time the applicant will obtain the relevant
air quality permits from the Lane RegionalAir Protection Agency (LRAPA). Specifically, the applicant will
obtain Air Contaminant Discharge Permits as needed and Indirect Source Construction Permits for the
proposed parking facilities.
In the Eugene-Springfield metropolitan area, Lane County, Lane Council of Governments (Metropolitan
Planning Organization), Lane Regional Air Pollution Agency, and the City of Eugene maintain compliance
with DEQ regulations by the following:
. Lane County provides residents with waste management services through a network of disposal
sites. The County's waste. reduction and recycling programs are managed to conserve resources and
prevent waste. '
. The Lane Council of Governments provides wastewater and stormwater systems, ground and surface
water, drinking water source assessment, watershed assessment studies and planning and protection
for the Eugene-Springfield Metropolitan Area. Additionally, the Lane Regional Air Pollution Agency.
regulates regional air quality in Lane County through regulations, programs and permits for residents
and businesses..
. The City of Springfield Public Works Department maintains water quality in the city through
metropolitan sewage stormwater treatment systems that are required to operate under specific
guidelines set forth by the DEQ. The City of Springfield also has design standards for wastewater and
stormwater collection systems in the City of Springfield Public Works, Standard Construction
Specifications and the Engineering Design Standards & Procedures. The City of Springfield's
Development Code has three articles relevant to Goal 6 that provide resource protection: Article 17-
DWP Drinking Water Protection Overlay District, Article 27 - FP Floodplain Overlay District, Article 32
- Public and Private Improvements.
The proposed PAPA does not amend any of the Goal 6 related policies of the Metro Plan or the Regional
Transportation Plan nor amend any regulations implementing thos~ policies. As demonstrated in
responses regarding Goa/11, incorporated herein by reference, these urban services are available.
Because the proposed PAPA does not authorize any specific development at this time, there can be no
direct impact to air, water, or land resource quality. When development occurs on the subject site, all
development will comply with all applicable local, state, and federal regulations that protect air, water and
land resources. As indicated in findings regarding Goal 11, incorporated herein by reference, options for
accessing or providing the necessary urban services are available. Therefore the proposed. amendments
are consistent with Goal 6.
In addition to the preceding facts, the evidence supports a reasonable expectation that future
development resulting from the proposed PAPA will be consistent with Goal 6 requirements. Therefore,
the City of Springfield can reasonably expect that future development under the proposed PAPA will
comply with applicable state and federal environmental quality standards. The proposedPAPA is
consistent with Goal 6.
Staff's Response:
Staff concurs with the applicant's submittal. The purpose of Goal 6 is to improve and maintain the quality
of the air, water and land resources of the state.
_ EXHIBIT A - PAGE 11
The subject site is located within Potential Nodal Area 7C as shown on the on the Potential Nodal .
Development Area Map in TransPlan. The proposed development will implement mixed-use and nodal
development standards intended to reduce automobile trip frequency and duration. both on-site (between
the proposed community commercial services in the south and the proposed medium density residential
areas in the north of the subject site) and off-site (between the existing nearby residential development
and existing industrial uses, to the east ano south of the subject site). The proposed development will
also allow higher density; transit supportive development that also provides opportunities for bicycle or
pedestrian trips both internally and externally. For these reasons the proposed development will help .
maintain the air resources of the state and will not alter the environmental protections provided by the
Metro Plan for airborne discharges.
The proposed MUC portion of the development will require compliance with mixed use design standards
specified in SDC Article 40. The proposed MDR portion of the development area will require compliance
with design standards for Multi-Family development (apartments) and for Cluster Development (single-
family housing) in SDC Article 16. These design standards foster. pedestrian safety andinfill development.
Site drainage issues will be addressed during the Master Plan, Site Plan Review and Subdivision
application review processes and thus will be subject to the development permitting and approval process
of the SDC; various building safety codes and the Public Works Design Manual for on-site storm water.
management; and other applicable state and federal regulations.
Finally, the City has an adopted drinking water protection plan and overlay zone requiring observance of
certain development standards and prohibitions of specific chemicals and chemical storage. The subject .
site must comply with the Dr.inking Water Protection Overlay District standards, regardless of plan
designation or zoning. The "Pierce" wellhead protection area is proposed but has the same standing as if
a well was already in place. The City's adopted wellhead protection map shows the proposed wellhead
on the Willamalane Park and Recreation District property outside of the subject site, north of the EWEB
Bike Path. Site specific drinking water protection issues are addressed during the application review . d
process (SDC Articles 17 Drinking Water Protection Overlay District and Article 31 Site Plan Review).
These regulations especially apply to the proposed home improvement center.
Staff FindinQ:
As conditioned, these applications comply with Goal 6 because the PAPA implements the Nodal
Development Area Metro Plan designation and thereby TransPlan Potential Nodal Area 7C, and there are.
regulations currently in place concerning storm water management and protecting the City's drinking water
supply, 95 percent of which is from groundwater. .
Condition of Approval #3:
Submittal of a Master Plan application that incorporates the relocation of the existing drainage ditch and
conversion to a major water feature that will be an integral part of the proposed development area. The
construction of the entire water feature must be completed as part of the Phase 1 development.*
* The applicant has stated that Phase 1 will include the home improvement center. This means that this
and all other conditions referencing "Phase 1" must be incorporated into proposed Master Plan Phase 1
development.
Condition of Approval #4
Submittal of a Master Plan application that addresses compliance with the Drinking Water Overlay District
standards in SDC Article 17 and how these regulations will be applied for each proposed phase.
GOAL 7: AREAS SUBJECT TO NATURAL HAZARDS
"To protect people and property from natural hazards."
EXHIBIT A - PAGE 18
Applicant's Submittal:
"Goal 7 requires that development subject to damage or that could result in loss of life not be planned or
located in known areas of natural hazards and disasters without appropriate safeguards. The goal also
requires that plans be based on an inventory of known areas of natural disaster hazards (floods,
landslides, earthquakes, wildfires and other related hazards). The Multi-Hazard Mitigation Plan for the.
Eugene/Springfield Metropolitan Area (Metro Hazard Plan) that was adopted by the City of Springfield is a
non-regulatory plan but provides an inventory of known hazards.
The Metro Hazard Plan does not identify any known hazards within the area of the subject site.
Additionally, the subject site is outside of the. 100 year and 500 year flood plains (Exhibit 7). There are no
adopted or non-adopted maps that identify the subject site to be within a know hazards area.. The
proposed amendments do not affect any additional geographic area than the subject site, nor IS any
specific development proposed at this time. In due time, future development of the subject site will include
a full analysis of hazard risk and mitigate the risk through appropriate construction. As such this
amendment is in compliance with Goal 7"
Staff's Response:
Staff concurs with the applicant's submittal. Goal 7 is intended to minimize the risk of hazards to human
health and the risk of loss of human life. Goal 7 also intends to minimize costs associated with
redeveloping after a natural disaster by restricting development in areas that are prone to natural
disasters and hazards. Two primary areas of concern involve development in the flood plain and on
steep slopes. The subject site is flat and is not located within a f1oodway. .
Staff Finding:
These applications comply with Goal 7 because it has been demonstrated that the subject site is not
located within an inventoried hazard area.
GOAL 8: RECREATIONAL NEEDS
"To satisfy the recreational needs of the citizens of the state and visitors and, where appropriate,
to provide for the siting of necessary recreational facilities including destination resorts. "
Applicant's Submittal:
"Regarding recreation, State-wide Planning Goal 8 states, The requirements for meeting such needs,
now and in the future, shall be planned for by governmental agencies having responsibility for recreation
area, facilities and opportunities:
1. In coordination with private enterprise,
2. In appropriate proportions; and
3. In such quantity, quality and locations as is consistent with the availability of the resources to
meet such requirements. '
Pursuant to Goal 8 requfrements, the City of Springfield and other local jurisdictions. have developed the
following relevant plan documents: '
. Eugene-Springfield Metropolitan Area General Plan (Metro Plan), Revised 2004
.. Rivers to Ridges, Metropolitan Regional Parks and Open Space $tudy, 2003
. Lane County Parks Master Plan, 1980
. Willamalane 20-year Park and Recreation Comprehensive Plan, 2004
EXHIBIT A - PAGE 19
The proposed Metro Plan Land Use Diagram amendment will not change the status of any recreation
area, facility or opportunity that has been inventoried and designated by the Metro Plan or any other
relevant facility plans regarding recreational needs. None of the various studies, inventories, and facilities
plans have designated the subject site for parks and open space in an adopted inventory, declared it a
significant resource, or slated this privately owned property for acquisition.
The Willamalane Park and Recreation District, responsible for parks and recreation planning in the City of
Springfield, has developed the Willamalane 20-year Parks and Recreation Comprehensive Plan. The
City of Springfield has adopted this plan as a refinement of the Metro Plan. The plan proposes a 5;5 acre
community park on two undeveloped parcels north of the subject site, between Briggs Middle School and
the EWEB utility easement (bike path), and owned by the Willamalane Parks and Recreation District.
The Willamalane comprehensive plan refers to these parcels as 'the Pierce property, ' donated in 1993
and elsewhere identified with adjacent parcels as the 'Yolanda/Briggs/Pierce School Park.' . The plan
observes that "there are opportunities to work with the School District and EWEBon future improvements.
to the Pierce property as a neighborhood park and a wayside for the EWEB Bike Path' (pg A-46-7).
The Willamalane 20-year Parks and Recreation Comprehensive Plan, 'Table 1: Neighborhood Parks'lists .
action items for neighborhood parks. Action 1.4 suggests, 'Investigate expansion of the park onto the
vacant land to the south,' the subject site. However, such iMestigations, if they have been pUrsued, have.
led to no further defined action or policy. Action 1.5 suggests, 'pursue opportunities to improve the EWEB
bicycle path and develop park facilities on adjacent land to help meet neighborhood park needs...). The
Preliminary Plan Illustration for the subject site includes several pedestrian and bicycle connections to the
EWEB path and the proposed parks to the north. The subject site itself will include extensive public open
spaces. As a commenting agency, the Willamalane Parks and Recreation District will have, through the
Preliminary Plan Illustration and site plan review processes, the opportunity to coordinate plans with
future development.
Rivers to Ridges, Metropolitan Regional Parks and Open Space Study does not identify the. subject site .
as a resource. The study maps the EWEB bicycle path that borders the northern boundary of the subject. .
site as an element of the area's 'Major Public Parks and Open Space.' However, this bicyCle path is ..
outside the boundaries of the subject site.
No part of the subject site is designated by the Metro Plan as Parks and Open Space. The Willamalane
20-year Park and Recreation Comprehensive Plan does not identify the subject site as an 'existing park
and recreation resource '. No acknowledged plan declares it a significant resource or slates this privately
owned property for acquisition. Therefore, the proposed PAPA is consistent with State-wide Planning
c~a .
....;,.
Staffs Response:
Staff generally concurs with the applicant's submittal. Willamalane Parks and Recreation District is the
local agency responsible for park planning within Springfield's city limits and Urban Growth Boundary.
WilIamalane's Comprehensive Plan (WCP) was adopted by the City as the acknowledged Goal 8
comprehensive planning element on November 14, 2004. There are no existing or proposed parks within
the boundary of the subject site. However, as the applicant has stated above, the WCP shows a future
neighborhood park, north of the EWEB bicycle path.
Chapter 4 of the WCO contains strategies and actions for parks and open space.
A3. under Parks and Open Space states: "Work with the City to encourage the private provision of
. quality parks, urban plazas, trails, linear parks, rooftop open space, and other amenities in private
developments, where consistent with the goals and standards of this Plan." (P. 23)
On the Preliminary Plan Illustration, the applicant shows a proposed private park that will serve the
residents of this development. Off-street pedestrian walkways are also shown along the proposed water
feature that will cross the subject site from east to west.
EXHIBIT A - PAGE 20
The applicant states: "None of the various studies, inventories, and facilities plans have designated the
subject site for parks andopen space in an adopted inventory, declared it a significant resource, or slated
this privately owned property for acquisition." [and] "No acknowledged plan declares it a significant
resource or slates this privately owned property for acquisition. "
The applicant also states: "The plan propoSes a 5.5 acre community park on two undeveloped parcels.
north of the subject site, between Briggs Middle School and the EWEB utility easement (bike path),and
owned by the Willamalane Parks and Recreation District. The Willamalane comprehensive plan refers, to
these parcels as 'the Pierce property, ' donated in 1993 and elsewhere identified with adjacent parcels as
the 'Yolanda/Briggs/Pierce School Park.' The plan observes that "there are opportunities to work with the
School District and EWEB on future improvements to the Pierce property as a neighborhood park and a
wayside for the EWEB Bike Path"
Staff would like to clarify the applicant's statements above by citing the following sections of the WCP.
A20. under Neighborhood Parks states: "Develop partnerships with public agencies, developers, and
property owners to help meet neighborhood park needs in served, as well as unserved areaS. "
(P.29) ,
Table 1: Neighborhood Parks lists:
"Project 1.3 Yolanda/Briggs/Pierce School Park - Work with SD 19 to develop and develop a
school/park master plan for the Pierce property and adjacent Briggs and Yolanda school grounds
that provides for coordinated development and optimizes outdoor recreational facilities." (PAO)
"Project 1.4 Pierce property Expansion - Investigate expansion of the park onto the vacant land to
the south." (PAO)
During the approval process for these applications, staff is requesting that the applicant begin a dialogue
by discussirig the proposed development with representatives from Willamalane and whether th,ere can
be coordination to achieve park development north of the subject property in conjunction with Marcola
Meadows development.
In addition, when Marcola Meadows residential and Willamalane park development occurs, residents will
need to cross the EWEB facility to utilize the park/recreation facilities. The EWEB right-of-way is
approximately 60 feet-wide and the existing bike/pedestrian path, within that right-of-way is approximately
10 feet-wide. The Preliminary Plan Illustration shows pedestrian connections from the subject site to the
bike/pedestrian path. As part of the Master Plan and other required land use applications; the applicant
will be required to obtain the necessary easements from EWEB to allow residents of the proposed
development to cross their facility.
These applications can be conditioned to fully comply with Goal 8.
Staff Finding:
As conditioned, these applications comply with Goal 8 because in addition to private on-site open space,
~here are nearby park facilities that can serve future residential development.
Condition of Approval #5:
Submittal of a Master Plan application that addresses the relationship of the proposed development to
Willamalane's future park on the north side of the EWEB Bike Path and an explanation of any
coordination efforts with Willamalane concerning the timing and development of the future park.
EXHIBIT A - PAGE 21
Condition of Approval #6
Submittal of a Master Plan application that addresses coordination with EWES to determine if any
easements are required in order to cross the EWEB Bike Path to access the future park. . .
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." .
Note: These applications were submitted to the City on September 29, 2006. The applicant is using
existing, adopted land inventories and supplemental land use information to make the case for Goal 9
and related Goals (10) and (12).
;"' ,
Applicant's Submittal
"Response:
.. Statewide Planning Goal 9 - Economy of the State, requires communities to inventory, plan; and zone
enough commercial and industrial land to support the diversification and improvement of the economy,
Pursuant to this, the City of Springfield has adopted the following documents:
Eugene-Springfield Metropolitan Area General Plan (Metro Plan), Revised 2004
Springfield Commercial Lands Study, February 2000 .
Metropolitan Industrial Lands Special Study:
Metropolitan Industrial Lands Inventory Report, July 1993
Metropolitan Industrial Lands Policy Report, July 1993
Also relevant to this discussion are studies regarding other statewide planning goals. These other
documents include:
...:~..
Springfield Natural Resource Study Report, October 2005
Eugene-Springfield Residential Lands Study, 1999
The Metropolitan Industrial Lands Special Study (MILSS) commenced in 1989 and produced two
documents, the Metropolitan Industrial Lands Inventory Report (MILlR)and the Metropolitan Industrial
Lands Policy Report (MILPR). In 1995, the Springfield Commercial Lands Study (SCLS) was initiated.
The City of Springfield adopted the study in 2000 and the Oregon Department of Land ConseNation and
Development (DLCD) acknowledged the SCLS as a periodic review task. The study looked only at lands
within Springfield's urban growth boundary and did not make changes to either the Metro Plan or the
Springfield Development Code. However, as an area specific periodic review task, it updates the
"Economic Element" of the Metro Plan and includes findings, policies and implementation strategies
regarding the supply of commercial lands.
Because the proposed amendment would shift land from Industrial to Commercial and Residential, the
two additional documents listed above are relevant. Findings of the Eugene-Springfield Residential Lands
Study were incorporated into the Metro Plan along with other periodic review amendments in the 2004
Update. The Springfield Natural Resource Study Report (SNRS) updated inventories of Residential,
Commercial, and Industrial lands, and was acknowledged by,the DLCD in December 2006.
Oregon Administrative Rule (OAR) 660-009-000 et seq. (Division 9) establishes the applicability of Goal 9
rules to Post Acknowledgement Plan Amendments (PAPA), and specifies certain procedures and
requirements for local governments to follow in the adoption or amendment of all plan or limd use
regulations pertaining to Goal 9. In OAR-660-009-0010(4) the rule discusses procedures relevant to this
application and states:
EXHIBIT A - PAGE 22
'Notwithstanding paragraph(2),[660-009-001 0(2)}, a jurisdiction Which changes its plan designations of
lands in excess of two acres to or from commercial or industrial use, pursuant to OAR 660-Division 18 (a
. post acknowledgement plan amendment), must address all applicable planning requirements; and: ..
(a) Demonstrate that the proposed amendment is consistent with the parts of its acknowledged
comprehensive plan which address the requirements of this division; or .
(b) Amend its comprehensive plan to explain the proposed amendment, pursuant to OAR 660-
009-0015 through 660-009-0025; or .
(c) Adopt a combination ofthe above, consistent with the requirements of this division.'
The plan designation changes anticipated by the proposed PAPA will remove 56.0 acres of Campus
Industrial designation. In its stead, the supply of land with Commercial designation will increase 37.0
acres and the remaining 19.0 acres will receive a Medium Density Residential designation. Additionally,
26.0 acres of the Commercial land will also have a Nodal Development Area overlay designation. [See
Attachment 2]. The following facts will demonstrate that the proposed amendment is consistent with the
most recent economic opportunities analysis and with the sections of the acknowledged Metro Plan which
address the requirements of Division 9.
The Metropolitan Industrial Lands Inventory Report (MILPR) estimated that the industrial land supply at .
the beginning of the planning period (study year) was about 3,600 acres within the Metro UGB. The ....
Campus Industrial2 share of all vacant unconstrained industrial land was 27% (derived from Table 5 of the
MILlR, p. 47). About 709 acres of the Metropolitan study year industrial land supply was within the
Springfield portion of the UGB (MILPR, Table 5, p. 47). The MILPR does not estimate demand within the
Springfield UGB alone, nor does it segregate the estimated demand for Campus Industriallahd in the
Metro area. The subject site was included in the list of short-term sites for new industry (MILPR, p. 2IJ .
and p. 45, Subregion 7, Site 5). The study further estimated that the projected 20-year demand for
industrial land for the Metro UGB would be between 650 and 1,172 acres, one-fifth to one-third of the
supply (MILPR, p. 7). In response to this study, the Metro Plan was amended deleting a finding that the
supply was not adequate to meet the projected growth in the commercial and light manufacturing
segments of the economy (MILPR, p. 11).
The MILPR reported that in the study year there were 255 acres of the Campus IndustriaUand in the
Springfield UGB. Unfortunately, there are no estimates of the depletion of Campus Industrial land in the
adopted and acknowledged studies. If we apply the same 23% and 42% low and high depletion rates
seen in the overall Industrial supply, we derive a range of 148 to 196 acres of Clland in Springfield at the
end of the planning period.
The 2004 Metro Plan update estimated the supply of Medium Density Residential land in the study year
to be 828 acres, and projected the consumption of 589 acres during the planning period, leaving a plan
year (2015) inventory of 239 acres. The Springfield Commercial Lands Study (SCLS) updated plan year
estimates of Springfield's Commercial land inventory (within the UGB). It projected a significant deficit of
buildable land by 2015 if the historic rate of consumption continued.
The inventories of all three general categories of land were studied by the Springfield Natural Resource
Study Report to gauge the impact of setting aside Goal 5 lands within the Springfield UGB. The 2005
study modified earlier inventory estimates by including plan amendments approved since the original
studies. andcQnsidering the maxir!JUm possible impact of Goal 5 protection measures. These modified
estimates are the basis of Tables 2, 9, 10, 11, and 12. The exception is the inventory of Medium Density
Residential land which was not reported separately by the SNRS. These tables analyze the impact of the .
proposed PAPA on the adopted and acknowledged inventories of lands. The estimates most specific,to
the situation are used.
2 The MILSS uses the term "Special Light" which has since been changed to "Campus Industria!." In this report we
will use the later tenn "Campus lridustrial". .
EXHIBIT A - PAGE 23
Table 2: Proposed Impact on Projected Plan Year Land Inventories
Acres
. General Use UBG Plan Yr Inventory PAPAl::. Total l::.% Source
Med. Density Res. Metro 2015 239 19 258 8% Metro Plan
Commercial Springfield 2015 -172 37 -135 22% SNRS
Industrial (high est.) Metro 2010 2,122 -56 2,066 -3% SNRS
Industrial (lowest.) Metro 2010, 1,600 -56 1,544 -4% SNRS
All three categories of land are important. Equilibrium between them is mutually beneficial and essential
to the overall economic and social health of the community. The table above shows that the proposed
PAPA has a relatively insignificant affect on the supply of Industrial land. The proportion of gain for MDR
land is twice the loss of industrial land, and the projected deficit of Commercial land is reduced 22%.
. .,.. ."
Deciding to reduce the supply of CI land is not an easy choice, a matter of robbing Peter to Pf:W Paul:'
Nonetheless, if we posit that providing land for the industrial sector is essential to our economy, we must ...
also acknowledge that manufacturers considering new sites wiff consider only areas that provide the
commercial support they require. They also look closely at housing costs for their employees and
managers. There is synergy between Residential, Industrial and Commercial land uses and a balance
should be maintained. Policies in the Metro Plan, weighed carefully, support the proposed PAPA.
COMPREHENSIVE PLAN POLICIES
The Metro Plan has the following policies directly relev.ant to the proposed PAPA:
Economic Element Policy #B.6 . ..
'In~rease the amount of undeveloped land zoned for light industrial and commercial uses . ,
correlating the effective supply in terms of suitability and availability with the projections of
demand.' .
Economic Element Policy #B.12 .. .. ..... .... ..
'Discourage future Metro Plan amendments that would change development-ready industrial
lands (sites defined as short-term in the metropolitan Industrial Lands Special Study,. 1991) to
. non-industrial designations.'
~''':;", .-
Clearly, these two policies often will be in conflict. With a limited supply of urbanizable land, increasing
the amount of undeveloped commercial land will frequently be at the expense of the inventory of industrial
land. The Metro Plan addresses the issue of conflict between policies: .
'The respective jurisdictions recognize that there are apparent conflicts and inconsistencies
between and among some goals and policies. When making decisions based on the Metro Plan,
not aff of the goals and policies can be met to the same degree in every instance. Use of the Metro
Plan requires a balancing of its various components .on a case-by-case basis, as weff as a
selection of those goals, objectives, and policies most pertinent to the issue at hand. '
The Springfield Commercial Lands Study, the most recent economic opportunities analysis regarding land
supply, contains the following key policies:
'Policy 1-A: Maintain a mixed supply of large and smaff commercial sites through strategies such
as rezoning or annexation to serve Springfield's future population.'
'Policy 1-B: Ensure that an adequate amount of commercial land is designated in the undeveloped
identified nodes such as Jasper/Natron and McKenzie/Gateway, to accommodate a portion of the
demand for commercial acreage, and to implement the policies and objectives of the TransPlan.'
'Policy 1-C: Maintain at least a five-year supply of commercial land within the Urban Growth
Boundary (UGB) that is currently served or readily serviceable with.a range of urban public
facilities and services. ' .
EXHIBIT A - PAGE 24
'Policy 3-A: Redesignate and rezone portions of industrial land or residential land within identified
Employment Center, Neighborhood Center, or Commercial Center nodes to Mixed-Use
Commercial to achieve the objectives of TransPlan, Transportation Planning Rule 12, and to
incorporate higher intensity development in conjunction with residential and employment
opportunities. '
CONVERSION TO COMMERCIAL DESIGNA TlONS
A projection of a Commercial land inventory deficit within the planning period is unacceptable under the
rules of Statewide Planning Goal 9; The necessity of replenishing the inventory is not debatable.
Nonetheless, the issue of trading Industrial land, in this case Campus Industrial, for Commercial land
needs to be examined carefully. Because meeting all land use policies perfectly and completely is
impossible, their priority must be considered. Metro Plan Economic Element "Policy #B.6" is imperative
and provides clearer guidance than "Policy #B. 12, " which merely discourages. The policies of the
Springfield Commercial Lands Study, particularly "Policy 3-A, " clearly trump "Policy #B. 12" when
considering the proposed PAPA. The proposed PAPA places the Nodal Development Area overlay
designation on most of the site, addressing "Policy 1-B, " and "Policy 3-A. "
The Land Conservation and Development Commission (LCDC) recently reported to the Governor on the
conversion of industrial land to non industrial land. The report was concerned with maintaining an
adequate local supply of industrial land and preventing conversions of prime industrial land to non-
industrial uses. Their report was titled "Promoting Prosperity: Protecting Prime Industrial Land for Job
Growth." It made the following observation:
'The issue of conversion of industrial lands';'') linked directly to the goal of providing an adequate.
supply of industrial and other employment land for a variety of economic activities. Untimely or
undesirable conversion of industrial lands, particularly conversion of strategic sites with unique
market features, can interfere with accomplishing the goal of providing adequate land
development opportunities for economic growth and job creation.' (p. 11)
'The GMELS' [Greater Metropolitan Employment Lands Study] Phase 1 findings reinforce the
committee's assertion that traditional industrial areas, including those featuring heavy
manufacturing, warehouse/distribution, industrial service and waste management activities
should be protected from encroachment by incompatible non-industrial uses by placing these
areas in so-called industrial sanctuaries.' (p. 19) .
However, the report also observed,
'To better understand the concept of 'employment lands,' the committee examined the Phase I
findings of the Greater Metropolitan Employment Lands Study (GMELS). The study is based on an
assessment of the need for a broad category of employment lands within the greater Portland
metropolitan region. Committee members concurred with a major finding of GMELS that the line
between industria1.and non-industrial use is becoming increasingly blurred in the new economy
because many traded-sector and industrial activities are now carried out in office and tech-flex
settings. The latter type of industrial uses is perfectly compatible with other employment activities
and, thus, can be accommodated in mixed-use zoning districts that include retail, office,
institutional and/or light industrial and eve.'! residential uses.' (p. 18)
'New and emerging industrial uses: These are high-tech, biotech, some manufacturing and
research and development and are often located in office and tech-flex settings. They are most
productive when adjacent to similar companies and their non-industrial suppliers, lenders and
support systems. Suitable locations for these activities include many mixed-use zones, as long as
their scale, design and operational characteristics are compatible with surrounding uses.' (p. 20)
Although the conversion of Clland to other designations may seem to have a negative effect on the
potential for economic development, the net effect is very positive when considering the benefits of
EXHIBIT A - PAGE 25
adding to the extremely scarce supply of commercial land. As the DLCD report to the Governor points
out, high-tech research and development firms are most productive when non-industrial suppliers and
supporting services are available to theni. Additionally, Commercial land is suitable for many high-wage, .
economic export employers. New 'and growing sectors of the economy blur the line between commercial
and industrial land use. .
SITE SPECIFIC ISSUES
The Campus Industrial portion of the site has been reserved as development ready land since 1995. It
was designated as Special Light Industrial (the precursor of Campus Industrial) for years before that.
Despite the dwindling supply of Clland, not one industrial development has been proposed for it. The
reasons it has not yet been developed are complex. However, the. site is not ideal with regard to the
qualities that the CI designation is intended to foster and preserve. To attract the desired industries, the
zone imposes performance standards to reduce conflicts with adjacent zoning districts and negative
impacts between sites within the CI district itself. From the Metro Plan, 'The activities of such firms are
enclosed within attractive exteriors and have minimal environmental impacts, such as noise,
pollution, and vibration, on other users and on surrounding areas. '.. .
However, the site and surrounding areas are already subject to some of these impacts; which may
partially explain why the site has not yet been developed with CI uses. The City's pre-application report
lists 'air pollutants from surrounding heavy industrial uses, overhead electrical lines and nearby
rai/lines which cause problems for certain types of high technological industries. Several high
tech firms had considered the Pierce Property for a potential location, and all found it unsuitable
because of these problems.'
Lane Metro Partnership confirms this information. The agency provides economic developm.:tnt and
busineSs information for Eugene, Springfield and Lane County, and maintains a computerized inventory
of vacant industrial land and buildings. They report that while numerous inquires about the subject site
are received from businesses considering it as a location for new facilities, there are common objections. .
These include the site being too close to established residential areas for industrial uses; and too close to
the Kingsford charcoal plant for high-end office or research facilities. Operating Permit 204402, issuedby
the Lane Regional Air Pollution Authority, allows the Kingsford plant to emit up to 1,075 tons of particulate
. and gaseous pollutants per year. ',>.
COMPETING SITES
Long after the subject site was zoned for industrial use, the McKenzie-Gateway Corporate Park became
available. It has drawn light-industrial and high-tech uses while the subject site has remained fallow.
Companies building or acquiring facilities there have included Sony, Symantec, and Shore wood
Packaging. However, the Gateway Park has undergone significant pressure from the pent-up demand for
Commercial property. . Most of the Sony facility has been converted to office use. Symantec focuses on a
customer service call center rather than research and development. In 2004, the City revised CI
regulations to further limit types of commercial uses and limit their coverage to 40% of gross acreage.
Gateway gross acreage in commercial use is now nearly 30%. While the market place has clearly
indicated the superiority of Gateway over the subject site as a location for Campus Industrial
development, the shortage of Commercial land threatens the remaining buildable land at the more
desirable location. Though conversion of the subject site would reduce the inventory of Glland, it would
take some of the commercial development pressure off Gateway. This would help reserve Gateway for
industrial development, thus sacrificing a marginal resource to foster more productive use of a superior
one.
COMPARING WAGES
How might the conversion of the subject site's Clland to Commercial affect the ability of Springfield to
attract jobs that provide a family wage? We begin by asking what a family wage is in Springfield.
Although there is no precise definition of "family wage,." the term came into use during the Industrial
Revolution when work was separated from home to a degree not seen before. The concern was that the
breadwinner earn enough to allow the spouse to stay home tending the house and children. It became a
somewhat controversial term; some commentators assigning sexist overtones to it. Data in the following
EXHIBIT A - PAGE 26
tables create a statistical context for the discussion. If "family wage" can be defined as the gross income
needed to cover typical expenses of the average family, the tables below estimate these figures in
Springfield and Oregon.
Table 3: Springfield, Oregon Average Household and Family Size
Number of Individ.uals
Average Household 2.55
Average Family 3.03
Source: U.S. Census Bureau, Census 2000 Summary File 3
Table 4: Springfield, Oregon T pical 2004 Famil Expenses
Source .Two Adults, Two Adults,
One Child Two Children
Poverty in America 1 $34,905 $43,862
E. P. 1.2 $36,408 $41,748
1: Poverty in America Project, Penn State University
. 2: Economic Policy Institute
Figures are for typical expenses. Figures for One Adult and Two Children
are within approximately one percent of Two Parent, One child expenses.
The table below gives U. S. Census data regarding the median incomes of individuals and households.
Note that the family household income is significantly higher than the highest individual median income.
Data about the proportion of two-income households or the average wage of principle breadwinners is not
....; available. Heads of family households may be making significantly more than the average or many
hOliseholds may have two incomes. Some combination of the two is likely. Regardless, it indicates
caution should be used when making assumptions about family wages.
. Table 5: S rin field and Ore on Median Incomes
Oregon
Springfield, Oregon
Family Households $55,196 $43,539
Non-family households $29,209 $23,734
All Households $46,393 $37,452
Male full-time, year-round workers $41,485 $35,118
Female full-time, year-round workers $30,591 $25,524
Source: U.S. Census Bureali, Census 2000 Summary File 3, adjusted to 2004 Consumer Price Index
To assess impact of the PAPA on family wage jobs, we can estimate the average wage of employment in
the relevant land use designations. The table below uses information from the Lane County Council of
Governments and the Oregon Labor Market Information Service to correlate the estimated number of
people employed by each industry sector within a plan designation, and the Lane County average pay
within each sector, to derive an estimated average pay for employment in a land use designation.
EXHIBIT A - PAGE 21
, Table 6: Plan Designation Average Wage
Commercial
Employment
'676 2%
779 2%
767 2%
585 2%
8,890 25%
2,455 7%
, Industry
Construction
Manufacturing
Trans., Comm., and Utilities
Wholesale Trade
Retail Trade
Finance, Insurance and Real
Estate
Services
Government
Total
Weighted Average Pay
20,348 57%
1,218 3%
35)18 100%
$25,732.13
Comm. Mixed Use
Employment
107 4%
99 ,4%
128 ' 5%
68 3%
332 13%
342 13%
1,252 48%
, '279 . 11 % '
2,607 100%
$30,905.80
Average Pay
$37,751.00
-$38,057.21 .'
$35,090.20
$40,622.86
$19,309.19
$34,737.05
$27,340.14
$37,239.00' ,
Source of wage data: OLMIS Lane County 2000 industry sector average adjusted for 2004 Consumer " '
Price Index except the figure for Government whIch is from 2004. ' '
Source of industry sector employment by plan designation: LCOG - 2004.
, ' '
To better understand the impact of the PAPA on conditions in Springfield, the next table provides an
overview of the types of businesses and the approximate number of employees currently located in the
Gateway area (the only other CI zone in Springfield with significant development. Most of the businesses
listed in the table would be allowed withi/l the proposed PAPA redesignations.
EXHIBIT A - PAGE 28
Table 7: Types of Businesses and Approximate E;"ployees for Gateway Oevelopment
Gateway Businesses Address Type Approximate Number
of Employees
Royal Caribbean Cruise Lines
, 250-500
1000 Royal Caribbean Way Travel sales call center
(3900 Spo~s Way)
Symantec
5551ntemational Way
PacificSource Health Plans
110 I ntemational Way
Oregon Medical Laboratoriesl
Oregon Veterinary Laboratory
123 International Way
Sacred Heart Medical Center
Foundation
1231ntemational Way
Sacred Heart Medical Center
Materials Management
Shorewood Packaging Inc
500 International Way
Global Industries
950 Intemational Way
Grand Slam USA
921 International Way
McKenzie Athletics
'909 International Way
Pacific Office Automation
9111ntemational Way
Rex Myers Transfer
915 Intemational Way
FedEx
700 International Way
Learning Tree
100 Intemational Way
Computer Support Call
Center, Compo Tech
1200 '
Health Insurance
Headquarters
275
Medical Laboratories
300
Financial services
260
Materials (Supply
handlers)
30
Manufacture: p'aperboard
packaging products '
Wholesale distribution:
automotive parts and
accessories
60
._,~ :
10 -19
Indoor recreation: Batting
cages, basketball, etc.
1-4
Uniforms: screen printing .
and embroidery .
10 - 19
Copier sales and copying
services
20 - 49
Moving and storage
5-9
Couriers and messengers'
20 - 49
Child Day Care
N/A
Pla~ned Bu~jne~s~sA(
Collection Agency
177
Professional Credit Service
McKenzie Leasing and Finance
Heavy equipment leasing
13
Source: Information gathered from Dex, Lane Metro Partnership, and GLMIS info and links.
A: Professional Credit Service and McKenzie Leasing and Finance purchased 7 acres in Gateway and
will move headquarters there. ,.Source: The Register Guard - Tuesday, November 14, 2006.
EXHIBIT A - PAGE 29
Table 8 below shows the estimated wages for employment typical of the bllsinesses in the above table.
Comparing this data with Table 6 indicates that the average pay for employment in the designations,
proposed by the PAPA are similar to the average pay in Springfield's developed CI designated lands. ,.
Occupation
Bill and account collectors
Billing and Posting Clerks
Computer Support Specialist
Medical and Clinical Laboratory
Technicians
Miscellaneous Manufacturing
Travel Customer Service
Representative
Total employees 2,772 100%
Weighted Average Pay - $29,975.94
Source: Wage data for Lane County 2004 from OLM/S website except Travel Customer Service Rep
starting pay pllblished in Portland Bllsiness Journal - November 18, 2004.
. Source: Employment data from Lane Metro Partner ship and from infoUSA website.
Table 8: Employment and Wage Estimates for Springfield CI Businesses: 50 or more employees
, Employment
Number Percent
177 6.40%
535 19.30%
1,200 43.30%
300 10.80%
Average Pay
$30,060.00
$26,956.00
$34,874.00
$27,083.00
60
500
2.20%
, 18.00%
$32,292.00
$22,880.00
COMPREHENSIVE PLAN RESIDENTIAL POLICIES
Residential Land Use and Housing Element
Residential Density #A.10 '
'Promote higher residential density inside the UGB that utilizes existing infrastructure, improves
the efficiency of public services and facilities, and conserves rural resource lands outside the
00&' , '
Residential Land Use and Housing Element
Residential Density #A.11
'Generally locate higher density,r.esidential development near employment or commercial
services, in proximity to major transportation systems or within transportation-efficient nodes.'
Residential Land Use and Housing Element
Residential Density #A.12 ,
'Coordinate higher density residential development with the provision of adequate infrastructure
and services, open space, and other urban amenities': '
These residential policies make clear the importance of higher density residential development to the
future of the Eugene-Springfield Metropolitan area. Yet here again, there is an apparent conflict between
policies, namely Policy 3-A of the SCL and the residential policies of the Metro Plan just cited. As the
following analysis will show, splitting the converted Industrial land between Residential and Commercial in
the proportion proposed is entirely appropriate.
While the inventory of Springfield Commercial land will be entirely depleted by the end of the planning
period and the priority of creating more is obvious, Metro Area surpluses are projected for both Industrial
and Residential. The case for reapportioning these inventories must be made. To illustrate the need for
an adjustment of the inventories, the following table looks at the relative rates of Inventory depletion over
the planning periods studied.
EXHIBIT A - PAGE 30
Table 9: Projected Depletions of Land Inventories During the Planning Period.
Acres
General Use Study Yr. 'Ii Plan Yr. Ii% Source
Med. Density Res. 828 -589 239 -71% Metro Plan
All Res. (lowest.) , 5,830 -4,565 1,265 -78% SNRS
All Res. (high est.) 5,830 -5;637 193 -97% SNRS
Industrial (lowest.) 3,604 -1,482 2,122 -41% SNRS
Industrial (high est.) 3,604 -2,004 1,600 -56% SNRS
The table above shows that, over the planning period, the inventory of Medium Density Residential land is
'being depleted at a far faster rate thim Industrial land. (Note that the Metro Plan did not subtract
reductions of Goal 5 inventories the SNRS subtracted from the broader inventories.) Sacrificing a sin all
portion of Industrial land to replenish the more rapidly diminishing inventories is justifiable and prudent.
To illustrate the point further, the following table compares the final plan year inventories of Industrial and
Residential land. The two planning periods end five years apart, so the inventories are not simultaneous.
However, the comparison is still instructive. Commercial land was left out of the table because the.
Springfield plan year inventory is negative. All combinations of high and low estimates are calculated.
Table 10: Combined Plan Year Inventory Estimates
Total acreage Residential (low) Residential (high)
193 1265
1,793 2,865
2,315 3,387
Industrial (lowest.)
Industrial (high est.)
1600
2122
Table 11: Relative Proportions of Total Plan Year an Inventon
Res Ulnd H Res Ulnd L Res H/lnd H Res Hllnd L
Residential 8.34% 10.80% 37.40% 44.20%
Industrial 91.70% 89.20% 62.70% 55.90%
L d
BALANCING INVENTORIES
To evaluate the wisdom of shifting lands from one general use to another, we must establish a viable ratio
between them. The projected inventories of Industrial and Residential land can be analyzed by finding a
ratio of jobs to households, and then relating the number of dwellings supported by the Residential
inventory with the jobs supported by the Industrial Inventory. According to the U. S. Census Bureau's
2000 Census, the median earnings of employed individuals in the Eugene-Springfield Metropolitan Area
are approximately $30,000. From the same source, the average household income is approximately
$45,000. This gives us a rule of thumb ratio of 1.5 jobs per household. The Metro Plan target density is 6
dwelling units per gross acre. Therefore, the,corresponding numbers of jobs needed to support the high
and low estimates of plan year Residential inventory are 11,385 and 1737.
The Department of Land Conservation and Development, in their publication "Industrial and Other
Employment Lands Analysis Guidebook" recommends using ratios from 6.4 to 9.6 when estimating jobs
per gross acre of Industrial land. Using the Industrial land inventory high and low estimates, the table
below compares the resulting numbers of jobs with the Residential inventory. .
Table 12: Jobs Supported bv Projected Plan Year Land Inventories-
Acres du/ac job/du job/acre jobs
193 6 1.5 1737
1600 6.4 to 9.6 10,240 to 15,360
1265 6 1.5 11385
2122 6.4 to 9.6 13.380 to 20,371
Residential (lowest.)
Industrial (lowest.)
Residential (high est.)
Industrial (high est.)
EXHIBIT A - PAGE 31
In the slowest growth projection, the inventories are not in equilibrium. If consumption of land supplies is
on the high side; and inventories are low, there is a gross disparity. We should also remember that when '
inventories get extremely low, such as less than 200 acres of buildable land in a metropolitan area of this
size, the supply curve shifts up as people begin to hoard and price gouge in anticipation of greater
shortages. Clearly, for the health of the Metro economy, these inventories should be adjusted. New'
employers will not locate in the area if there is no housing for themselves or their employees. Shifting
land from Industrial designations to Residential designations is justified.
Conclusion: ,. ,. .
Adopted and acknowledged inventories indicate that well before the year 2015, Springfield's inventory of
Commercial land will be severely, if not completely, depleted. Metro Plan Policy #B.6 directs the City to
correlate the effective supply of economic lands in terms of suitability and availability with the projections
of demand. While the inventory of Clland may be small, OAR - Division 9 (Economy) does not prohibit
converting industrial land to another category of employment land, or to another Goalinventory, as long
as a local government maintains an adequate sllpply. OAR 660-009-0025(2) states, "The total acreage
of land designated in each site category shall at least equal the projected land needs for each category
during the 20-year planning period:" [Emphasis added.] In this situation, the need for Commercial Larid
will not be met by the end of the planning period, and the inventory of Residential land lags far behind '
Industrial, yet the acknowledged inventories indicate a Campus Industrial inventory surplus. An '
adjustment is warranted to maintain equilibrium and support other Metro Plan policies encouraging
increased residential densities and supporting Nodal Development areas. .
There is a synergistic relationship between the three general categories of land use that requires balance
between them in order to sustain economic diversity. The proposed redesignation of Campus Industrial
land to Commercial, Commercial Mixed-Use, and Medium Density Residenti~/development will support .
the diversification and improvement of the economy. It is consistent with the priorities established by
adopted and acknowledged policies. Therefore, the amendment is consistent with ,statewide planning.
Goal 9." ..
3) Staff Response
Staff consurs with the applicant's submittal. However, the DLCD memo dated March 12, 2007 stated that
both quantitative and qualitative data should be considered in the Goal 9 response.
Quantitative Data.
Note: The Lane County Industrial-Commercial Buildable Lands Study (CIBL). The applicant referenced
CIBL in the February 28, 2007 version of the response to Goal 9. This revised response dated March 17,
2007 no longer references CIBL. However, the DLCD memo dated March 12, 2007 (see Attachment 6)
, raised a concern about using data that was not adopted by the local jurisdictions and/or fully reviewed by
DLCD. Staff agreed and is adding the following CIBL background that was included in staffs
presentation to the City Council in November 2006: .
"State law requires each city's comprehensive plan to include an inventory of industrial and other
employment land suitable, available and necessary for economic development opportunities for a
20 year period. The Metro Plan satisfied this inventory at acknowledgment in 1982 and the cited
studies were adopted as specified above, but the lack of a contemporary database of conditions
and status led the Metro area elected officials and Lane Metro Partnership to co-sponsor an
evaluation of the metro area supply. The report included a newly developed database of current
conditions and offered an array of data sets that are useful for government and the private sector
in considering appropriate development sites for a particular use. That being said, it is important
to note that ECONorthwest's report is not the complete inventory required by law, nor is it a policy
document. The requirements for commercial and industrial buildable lands inventories include the
supply, a demand analysis (not included in this report) and provisions to match projected demand
with an adequate supply. While this report made no assertions or assumptions that the supply
included in this database is adequate, the report did identify additional work necessary to get to
EXHIBIT A - PAGE 32
that point and includes a list of policy options for additional consideration, including an
endorsement of the complete buildable lands inventory as specified in Oregon Administrative
Rules. " .
In November 2006, staff stated that while there may be additional options or variations on these options; .
staff agreed with the suggestion by ECONorthwest that creating a complete inventory is the most logical
next step to take. The current status of the CIBL report is that staff has prepared an "Issue Paper" for the
City Council's consideration. 'As of the date of this report, the Issue Paper has been funded. Any ,
acreage reference by the applicant to the CIBL study should be not considered as part of these
applications.
. ',' .
The primary data sources used by the applicant are the Springfield Commercial Lands Study, February
2000 and the Metropolitan Industrial Lands Special Study: Metropolitan Industrial Lands Inventory Report,:
July 1993 and the Metropolitan Industrial Lands Policy Report, July 1993. These are the same reports '
used during the review process for Home Depot in 2001. The applicant has provided additional
information pertaining to the Natural Resource Study, adopted by the City in 2005 and a discussion on
the conversion of Cllands to residential. In addition to these discussions, staff raises the following issues: ,
a) The up-to-date land inventory in the Gateway CI District.
Since the amendment of Article 21, Campus Industrial District, staff has been keeping track of the
available vacant Campus lridustrialland in the Gateway CI District. The Gateway CI District has about
275 total acres and as of March 13, there are still 116 acres that are vacant.
b) Current Market Forces.
Explanation language under State-wide Planning Goal 9 states: "Comprehensive plans and policies
shall contribute to a stable and healthy economy in all regions of the state. Such plans shall be
based on inventories of areas suitable for increased economic growth and activity after taking .
into consideration the health of the current economic base; materials and energy availability and
cost; labor market factors; educational and technical training programs; availability of key public
facilities; necessary support facilities; current market forces; location relative to markets; , . ,'"
availability of renewable and non-renewable resources; availability of land; and pollution control
requirements. "
The "current market forces" do not include light industrial development in the CI District is a trend since
the late '90's. This trend is placing pressure on the Gateway CI District and is the reason why staff
amended SDC Article 21 to create the 60/40 split (see the discussed under "qualitative" below).
c) The Jasper-Natron Area.
The applicant cites the draft Jasper Natron Specific Development Plan which proposes to add ,about 20
acres of Commercial and 118 acres of Clland to Springfield's long-term supply by the year 2015. While
this plan has not been adopted, the Lane County Commissioners recently voted to keep the Eugene-
Springfield Highway extension project alive and the City will begin the adoption process for this plan
within the year.
Qualitative Data.
a) Background Discussion on Special Light/Campus Industrial Designations/Zoning.
The original intent of the "Special Light Industrial" (SLl) land use designation and zoning was to allow
"high tech" industrial users that paid "family wages" and had a minimum "employee-per-acre" base. The
history of this land use designation goes back at least 35 years to the metro area's first "general plan",
"The 1990 Plan", adopted in 1972. That Plan stated: "Local planning policies should be developed
which will create an appropriate environment for industrial and research parks" (Ref. P. 32).
EXHIBIT A - PAGE 33
In 1982, when DLCD acknowledged the Metro Plan, both the Metro Plan designation and the zoning
district were called SLI. The Metro Plan SLI designation stated: "This is a specialized concept .
developed to deal with relatively large (projected employment of at least 500 per firm) light
industrial firms, such as manufacturers of semi-conductors, medical and dental supplies,
photographic equipment, computers and other electronic equipment, and large-scale research
and development complexes. The activities involved are generally characterized by highly skilled
and technical labor and are located indoors. Often, precision is of such importance that air
pollutants, noise and vibration associated with heavy industry are not compatible. These
industries are often located in campus-type industrial parks and are generally involved in the
manufacture or assembly of final products of small unit size or research-type development in an
office-based atmosphere... There are generally no effluents or other emissions to create
problems.... Heavy transport is not important.... Supporting office-based commercial,
development shall be considered an appropriate use when planned to complement the primary
intent of special light industrial development." ..
." . '. ..'
In 1994, the Metro Plan SLI designation was changed to today's Campus Industrial (CI). The current
Metro Plan CI designation states: "The primary objective of this designation is to provide
opportunities for diversification of the local economy through siting of light industrial firms in a
campus-like setting. The acti.vities of such firms are enclosed within attractive exteriors and have
minimal environmental impacts, such as noise, pollution and vibration, on other users and.
surrounding areas. Large-scale light industrial uses, including regional distribution centers and
research and development complexes, are the primary focus of this designation. Provision is also
made for small- and medium-scale industrial uses within the context of industrial business parks
which will maintain the campus-like setting with minimal environmental impacts. Complementary
uses such as corporate office headquarters and supporting commercial establishments serving
primary uses may also be sited on a limited basis. Conceptual development planning, industrial
park standards and site review processes shall be applied to ensure adequate circulation,
compatibility of uses and availability of large sites for light industrial firms...." (Ref. P. II-G-6)~
The primary difference between the SLI and Clland use designations is there no longer is a reference to
a specific employment threshold or specific types of light industrial uses. .
The Springfield Development Code was adopted in May 1986 and included Article 21, Special Light
Industrial District. In 1994, this Article was amended and renamed the CI District. consistent with the
Metro Plan designation change cited above. The CI District is primarily an industrial zone that allows the
siting of light industrial manufacturing and to a lesser extent, office/commercial uses. In 2004, ttie City
Council approved a number of amendments to Article 21, the Campus Industrial District. One of these
amendments placed a 40 percent limitation on the siting of permitted office/commercial (business park)
uses to keep the "industrial" integrity of the district against the demand for business park usesbecau?e
this zoning district is primarily an industrial district. The limitation was established because in the
, Gateway CI District, there has been a great demand to site office1 commercial uses. Currently, the 30
percent threshold has been reached in the Gateway CI District and staff has recently discussed this issue
with the Planning Commission. For the record, the applicant's Table 7 shows the current development
trends in the Gateway CI: business parks with no light industrial development ,since Shorewood
Packaging, Inc. in 1997. Shorewood Packaging is the only industrial use shown on the applicant's Table
7. ' '
. ~~.=....
The current SDC Article 21 CI District purpose statement conforms with the current Metro Plan
designation statement: "The CI District is intended to fully implement the Metro Plan Campus
Industrial Designation and any applicable refinement plans. The CI District provides opportunities
for diversification of the local economy by offering prime sites in a campus environment for large-
scale light manufacturing firms emphasizing modern technology and employing skilled workers in
family wage jobs. The term "campus" includes innovative building design, enhanced landscapes,
large open spaces and substantial pedestrian amenities. Small- and medium scale light
manufacturing may and supporting commercial/ office uses shall be located within a business
park, provided that combined business parks do not exceed 40 percent of the gross acreage of a
CI District. Business parks may include several buildings with multiple stories and a mix of uses.
EXHIBIT A - PAGE 34
Supporting retail uses such as banks, restaurants and day care facilities shall primarily serve the
employees in the CI District, not the general public. All uses in the CI District shall meet siting and.
operational performance standards to minimize impacts within the CI District and surrounding
areas. Permitted uses, including the storage of materials and vehicles necessary for the
operation of the use, shall occur entirely within enclosed buildings."
Today, there are two Clland use designations and zoning districts in Springfield: Gateway, in northwest
Springfield; and the subject site west of 31st Street and north of Marcola Road. The Gateway CI site is
regulated by the Gateway Refinement Plan, adopted by the, City Council in 1992. A portion of the
Gateway CI area has been developed with both light industrial manufacturing uses and business parks.
The Gateway CI District has approximately 275 total acres, of which approximately 116 are vacant. The
56 acre "Pierce" CI site is not within an adopted refinement plan area and has not been developed to '
date.
b) Suitability of the Subject Site for CI Development.
Under "Suitability", the applicant cited staffs concerns about the subject site's appropriateness for CI
development. Staff would like to expand on this point. In a memo datedOctober 14,1981 the
Metropolitan Planning Team discussed the proposed amendments to the adopted August 1980
Metropolitan Plan diagram. Item 28 stated: "Reconsider land use designations on the 'Pierce
Property'. The Industrial Study Task Force Final Report. L-COG, April 1981, recommended about
50 acres of this property be designated 'special light industrial' (SLI). The Task Force concluded
the North Gateway SLI site could not have sanitary sewers extended in the near future. The
'Pierce Property' has city services and would provide Springfield with an immediately available
site. This SLI Site provides opportunities for combining industJ;!~J; commercial and medium
density residential uses in a balanced scheme." The memo went on to state: "Problems
associated with the site include air pollutants from surrounding heavy industrial uses and
overhead electrical lines and nearby rail lines which cause problems for certain types of high
technological industries. Several 'high tech' firms have considered the 'Pierce Property' for a
potential location, and all have found it unsuitable because of these problems. Another problem
with the site is opposition to industrial use from neighborhood residents." However, in the end,
approximately 60 acres of land was designated and zoned SLl/CI). There have been a number of land
use applications attempting to receive development approval on the subject site over the years, but not
one has been for Special Light Industrial (the previous name of the CI designation/zone) Or CI
development.
c) Implementation of Potential Nodal Development Area 7C.
This issue, which will allow for a mix of residential and commercial development is discussed in more
detail in the Goal 12 response under this criterion and in the response to criterion 7.030(3)(b).
4) Staff Conclusion:
Under Quantitative Data:
This staff report demonstrates that there is a shortage of suitable commercial sites within the Springfield
UGB to meet the long-term demand for commercial land, as indicated by the SCLS.
This shortfall can result in greater competition, and can impede the potential for healthy economic
development, as businesses and retail are forced to locate outside Springfield due to a lack of suitable
sites. The deficit of commercial lands does not conform to State-wide Planning Goal 9 which reql,lires
jurisdictions to maintain an adequate supply of commercially zoned lands to meet projected demand for
commercial land through the planning period. The SCLS also notes that size and location further limit the
supply of buildable land. Goal 9 requires not only enough net buildable acres but also sites of varied
"sizes, types, locations and service levels." In order to foster economic growth and commercial
development is it essential that the City maintain a diverse supply of buildable commercial land in various
__ _EXHIBIT A - PAGE 35
sizes and locations. The CAC found in the SCLS that there is a need for a supply of both larger and
smaller sites to provide choice, diversity and economy in the marketplace. Given the current shortage of
larger sites, rezoning or annexation may be necessary for this to occur. The proposal would improve the ..
supply of vacant commercial land through rezoning consistent with the CAC's recommendation. .
This staff report demonstrates that there i$ still a surplus of industrial lands, including Cllands in the
Gateway area.
,I"
Staff agrees with the applicant's contention that there is a demonstrated shortage of developable
commercial land and a surplus of industrial land and that these applications are consistent with applicable
Metro Plan policies and current commercial and industrial land inventories. '
Given these facts and the requirement that the City maintain an adequate supply of commercial land as
well as industrial land; the situational changes cited in a)-c), above; and if the two questions raised at the
beginning of this staff report can be answered in the affirmative - will the City be better served by the
proposed development and will the City be assured that the quality development as proposed will be
, constructed over time, then both the Planning Commission and the City Council should consider that the ..
, applicant has complied with Goal 9. ' , , . .
. " . .
. . . .
This staff report demonstrates there will be a shortage of Medium Density Residential lands near the end
of the life of the Eugene-Springfield Residential Lands Study,
Under Quantitative Data:
, '
There are changed conditions pertaining to the history and current land utilization in the CI District,
especially in the Gateway area.
~-=
The original concerns by the Metro Plan team about the suitability of the "Pierce" property for SLl/CI
development, which apparently has had some impact on why such development has not occurred over
time on a "shovel ready" industrial site.
The fact that the subject site is still under single ownership and upon approval of these aeg.'ications, a
Master Plan will be required to guide development on the subject propertY over time. This mix of
commercial. and residential development will also implement Proposed Nodal Development Area 7C.
Finally, the CI District contains design standards that are intended to achieve a "campus-like"
environment. The applicant proposes to remove the CI designation and zoning, replacing it with the
following zoning districts: Community Commercial, Mixed Use Commercial and Medium Density
Residential. The Mixed Use Commercial and the Medium Density Residential zoning districts have
design standards. The Community Commercial District does not. The proposed ,home improvement
center will be sited in the Staff is concerned about the aesthetic appearance of the proposed home
improvement center. Staff has seen photos of an existing home improvement center in Scottsdale,
Arizona. The front of the building is broken up so that one gets away from the image of one continuous,
long, tilt-up wall. Staff wants the same or similar design for Springfield. A condition of approval is added
to assure that this issue shall be addressed at the Master Plan review/approval process.
5) Staff FindinQ:
As conditioned, these applications comply with Goal 9 primarily because given the lack of an up-to-date
commercial/industrial lands study, there is a demonstrated shortage of developable commercial land and
a surplus of industrial land and that these applications are consistent with applicable Metro Plan policies
and there is a demonstrated lack of demand for the types of industrial uses once envisioned for the
Campus Industrial District.
EXHIBIT A - PAGE 36
-- --~_._- ------ ~------------ ---
Condition of Approval #7
Submittal of a Master Plan application that shows the proposed home improvement center building
design similar to the existing building in Scottsdale, Arizona or a building desig~ that complies with the
current building design standards in SDC Article 21.
GOAL 10: HOUSING
"To provide for the housing needs of citizens of the state."
Applicant's Submittal:
"Goal 1 0 requires buildable lands for residential use to be inventoried and requires plans. to encourage
the availability of adequate numbers of needed housing units at price ranges and rent levels
commensurate with the financial capabilities of Oregon households. Oregon Administrative Rule 660
Division 8 defines standards for compliance with Goal 1 O. OAR 660-008~001 0 requires that:
'Sufficient buildable land shall be designated on the comprehensive plan map to satisfy housing
needs by type and density range as determined in the housing needs projection. The local .
buildable lands inventory must document the amount of buildable land in each residential plan
designation. '
, .
Approval of the applicant's proposed PAPA changing approximately 19 acres from Campus Industrial to
Medium Density Residential on the Metro Plan diagram and zoning map, requires compliance with
statewide planniog Goal 10, Housing (OAR 660, Division 8). (The total acreage of Medium Density
Residential land is proposed to increase from 35.7 to 54.7 acres). The Post Acknowledgement Plan
Amendment (PAPA) is consistent with the parts of the Metro Plan which address the requirements of
Goal 1 O.
The Eugene-Springfield Residential Lands Study (RLS) was completed in 1999 as a technical document
informing policy changes to the Metro Plan as part of the area's periodic review requirements. The RLS
was acknowledged by the state Land C6"tlservation and Development Commission as being consistent
with Goal 1 O. The purpose of the RLS was to compare residential land needs with available land supply.
The analysis does not require buildout of particular densities or numbers of units on specific sites or
within the metro area as a whole.
The RLS contains a detailed site inventory in the Technical Analysis, which is summarized below (Table
13) as it pertains to the subject site.
Table 13: Residential Land Study Site Inventory: Marcola Meadows Property
Site (Subarea 18) Total Acres Unbuildable Acres Constrained Buildable Acres
2 37.1 0.4 0.0 36.7
Source: Residential Lands and Housing Study Draft Inventory Document, 1999 page 64.
Of the subject site's total buildable residential gross acreage that was included in the inventory, all 37. 1
acres is designated for Medium Density Residential development. The RLS assumes that 32% of
residential lands will be developed with non-residential uses, lnclllding public and civic uses, roads, etc.
Subtracting this 32% leaves 25.2 net acres that one can reasonably assume was considered available for
development in the RLS. .
Density Assumptions
The RLS does not specify an assumed average density in the ivtDR designation. Rather, it outlines the
range of allowable densities (14.28 to 28.56 units per net acre) which coincide with the gross density
range described in the Metro Plan (10 throllgh 20 units per gross acre). It also describes the assllmed
EXHIBIT A - PAGE 31
distribution of hou?ing types within each residential designation (page 21) and the assumed density by
hOllsing type (page 22).
, ,.
, ..
The RLS also contains data summarizing actual built densities in the metro area. HOVle~er, o~/y limited
data was available, and built densities were assumed based upon data from years 1986, 1992, and 1994.
Using these three years, the data show built densities between 21 and 23 units per net acre for mlllti- .
family development (RLS Technical Analysis, p.21). No longer-term trend analysis is available.
These figures reflect built density for mlllti-family projects only, not all development built in the MDR
designation. Since single family houses and duplexes are allowed in MDR, the average density across
the designation is likely significantly lower. While average density figures have not been calculated for
MDR areas due to the difficulty of obtaining the data, single family development occurred at roughly 4
llnits per acre and duplex development at 10 units per acre during the same years (RLS Technical '
Ahalysis, Page 21). '
Surplus of Residential Land .
There is documented a net surplus of residential land to serve metro housing needs through 2015, for all
residential land categories combined, and medium density residential land in particular. The comparison
of residential land supply and demand is shown in Table 14 below: '
Table 14: Com arison of Residential Land Su
Medium Density Residential
Supp~ 828
Demand 589
Surplus 239
Source: RLS Technical Analysis, 1999, page 52.
I and Demand, In Acres
All Residential
5,802
4,564
1,238"'. '
The supply figures also do not include mixed use and commercial designations 'that can accommodate
residential development. In addition to calculating supply and demand in acres, the RLS considered the
supply and demand for housing units. This comparison also shows a net surplus across all residentially
designated land, and within the MDR designation in particular, as shown in Table 15 below: '
Table 15: Comparison of Residential LandSu
Medium Density Residential
Supply 13,078
Demand 9,432
Surplus 3,646
Source: RLS Technical Analysis, 1999, page 53.
ply and Demand, In Units '
All Residential
48,519
40,406
7,913
If the assumed surplus of medium density units (3,646) is divided by the assumed number of surplus
medium density acres (239), the derived density for MDR land is 15.25 units per net acre. This is not,
however, an adopted density assumption.
The RLS does not specify how to determine expected density or number of units on a particular site. One
source of expectation is the McKenzie Gateway MDR site Conceptual Development Plan, which .
accommodates a total of 1,195 units across 185 acres, at an average density of 11 llnits per acre, in its
preferred altemative:(ScenarioE). Alternatively, one can estimate the amount of expected development
on the site by extrapolating assumptions contained within the Residential Lands Study itself. ..
In fact, the applicant's proposal retains a surplus in the residential housing inventory, while increasing the
intensity of residential development. This strategy supports nodal development and flllfills the
requirements of Goal 1 0 by accommodating a qllantity of units that can be reasonably defended given the
adopted findings, analysis, and policies contained in the RLS.
Densities will in fact be increased over what wOllld otherwise likely be bllilt. The Residential Lands Study
concluded that through the planning horizon (2015), the area would have a surplus of land in all types of
EXHIBIT A - PAGE 38
residential land use categories. The study was adopted and incorporated into the Metro Plan in 1999,
and was acknowledged by LCDC as meeting the area's Goal 10 requirements. Specifically, the RLS
concluded that there was a surplus of 239 acres and 3,646 units in the MDR category (Metro Plan, pages
/II-A-3 and II-A-4).
In addition, the applicant's proposal is supported by applicable Metro Plan housing policies, including,
those in the residential land supply and demand, residential density, and design and mixed use areas, as
outlined in the Metro Plan Specific Elements section.
OAR - Division 8 does not prohibit creating additional residential land after a local government has
established an adequate supply. Therefore, for the purposes of Division 8, it is not necessary to establish .
a maximum acreage or to justify the designation of tesidentialland in excess of projected land needs.
The Residential Lands and Housing Study estimates of the long term projected land needs, and the
determination that there is an adequate inventory, served to demonstrate that the minimum needs had
been met. They did not establish a maximum and did not freeze the residential land supply.
If the proposed PAPA sought an exception from a State-wide planning goal, there would be a greater
burden of justification for the expansion of residential lands. The exacting standards for taking a Goal 2,
Part II exception would apply; the evidence would have to establish that "Areas which do not require a
new exception cannot reasonably accommodate the use." However, pursuant to OAR 660-004-0010(2),
such an exception is not required in this case. Determining the extent of the Goal 10 land supply is
merely a matter of policy for the local jurisdiction.
In summary, our analysis finds that the applicant's plan amendment proposal meets the requirements of
State-wide planning Goal 1 0, supports applicable adopted policies, and furthers the objectives of nodal.".;
development. "
Staff's Response:
Staff concurs with the applicant's submittal. The Metro Plan diagram amendment application proposes to.
change the subject site from Campus Industrial to Medium Density/Nodal Development Area and amend
the Springfielcl-'~oning Map from Campus Industrial to Medium Density Residential. Goal 10 requires that'
local jurisdiction adopt a housing study that contains an inventory of buildable lands; and that the '
"...housing elements of a comprehensive plan should, at a minimum, include: (1) a comparison of
the distribution of the existing population by income with the distribution of available housing
units by cost; (2) a determination of vacancy rates, both overall and at varying rent ranges and
cost levels; (3) a determination of expected housing d~mand at varying rent ranges and cost
levels; (4) allowance for a variety of densities and types of residences in each community; and (5)
an inventory of sound housing in urban areas including units capable of being rehabilitated." The
Eugene-Springfield Metropolitan Residential Lands and Housing Study, Policy Recommendations Report
(1999) contains this information and the Metro Plan was amended accordingly. Staff concurs with the
applicant's submittal, above.
Staff will address the following issues:
Adequate Supply of Buildable Land. "Provide an adequate supply of buildable residential land
within the UGB for the 20-year planning period at the time of Periodic Review." Ref. "Key Policies",
Page 3 of the Report. The twenty~year period ends in 2015. The applicant shows a surplus of MDR land
in the inventory that covers the life of the study. This is further supported by Finding 4. "There is
sufficient buildable residential land within the UGB to meet the future housing needs of the
projected population. In fact, the 1992 residential buildable land supply exceeds the 1992-2015
residential demand in all residential categories. Assuming land is consumed evenly over the
period, by 1999, there will be at least a 20-year supply of residential land remaining inside the
, UGB." Ref. "Residential Land Supply and Demand", Page 13 of the Report. The applicant also states that
, "OAR. Division 8 does not prohibit creating additional residential land after a local government
has established an adequate supply." The applicant proposes to change approximately 18 acres from
EXHIBIT A - PAGE 39
Campus Industrial to' Medium Density Residential. The discussion justifying the reduction of Clland is
contained in the response to Goal 9. '
Note: The City has recently initiated a Residential Lands Study. However, until that study has been
adopted by the City, the current study showing a surplus a MDR residential buildable land is still in effect.
Develop Land within the UGB First. "...Promote higher residential density inside the UGB that
utilizes existing infrastructure, improves the efficiency of public services and facilities, and.
conserve rural resource lands outside the UGB...." Ref. "Key Policies", Page 3 of the Report.
Currently, the existing 37 plus acres of MDR zoned and designated land is one of the largest multiple-
family sites in the City. The property is centrally located and can be served by existing public facilities.
j
'. '. .'
, '
Utilizing Landscaping and Architectural Design Standards. "...Reduce impacts of higher densitY . ..,
residential and mixed use development on surrounding uses by considering site, landscape and .... '
architectural design standards or guidelines in local zoning and development regulations...." Ref.,'
"Key Policies", Page 4 of the Report. A major component of the proposed development is the "water
feature" incorporating the existing drainage ditch which is intended to be relocated. This will form a ., ,....
"natural" boundary between the proposed MDR and commercial development, th,e majority of which will. ..
be mixed use. The proposed residential development will consist of single family cluster subdivision,
town houses and apartments as well as elderly housing. The SDC contains specific design standards for
these uses. The SDC also contains specific design standards for MUC. Finally due tothe 10ssofClland,
land proposed to be zoned CC will be conditioned to meet CI andlor MUE design standards as part ofthis
application.
Density ,~.'.
, '
, "
" ,
The applicant states: "... This strategy supports nodal development and fulfills the requirements of Goal
10 by accommodating a quantity of units that can be reasonably defended given the adopted findings, .
analysis, and policies contained in the RLS...." The residential density issue is addressed in more detail '
under the response to Goal 12. However, the applicant is proposing to apply the Nodal Development '
Area Metro Plan diagram designation to properties zoned MDR and MUC in order to implement .
"Proposed" Nodal Development Area 7C. 'Transportation policies require a minimum residential density of
12 dwelling units per net acre (the number of dwelling units per acre of land in residential use, excluding
dedicated streets, parks, sidewalks, and public facilities). SDC Section 16.010(2) states the required
MDR density is 10-20 dwelling units per net acre. Implementing the node will guarantee that the
minimum residential density for Marcola Meadows will be at least 12 dwelling units per acre. It should be .
stated that the MUC zoning district allows residential development to occur, however, to date, the
applicant has not stated if residential development will occur in the MUC. If the applicant chooses this
option in the future, the same 12 dwelling unit per acre standard must be met. For the record, housing is
not allocated to mixed use designated land due to State AdministrC3tive Rules.
Finally, the City has residential building permit informatio~ that demonstrates that multi-family
developments are currently occurring at 11.67 dwelling units per acre which is close to the 12 dwelling
unit per acre requirement for implementation of Nodal Development Area designations.
EXHIBIT A - PAGE 40
Housing Density and Housing Mix
Springfield Housing Types and Density
Based on Building Permit Data-July 1999-0ctober 2006
Housing 19 200 200 200 200 200 200 200 Total Housin Total Dwelli
Type 99 0 1 2 3 4 . 5 6 Dwellin g Type Acres ng
g Units by% Units
Per
Acre
Convention a 30 209 121 252 230 155 144 116 1257 52.4 % 227.6
I Single
Fl3milv
Manufacture 9 38 46 45 31 26 31 27 253 10.5% 56.2
d Home
Total Single 1510 62.9% 283.8 5.32
Family ,
Duplex* 22 30 16 14 18 38 38 17 193 8.0% 30.9 6.25
Tri-Plex 0 3 6 0 6 6 6 3, 30 1.2% 1.2 25
Four-Plex 0 4 0 4 84 12 140 56 300 12.5% 31.9 9.41
Apartment 0 40 6 200 0 122 0 0 368 16.3
5+ - 15.3% 15.12
Total Multi-
Family
Units
Excluding
Duplexes 698 29.1% 49.3 11.67
Total Units 61 324 195 515 369 359 359 219 2401 100.0% 364.1 6.60
*Duplexes may be built in both various residential zoning districts. About 57%' of all duplexes are found in '
LDR zoning districts. Some 36% are found in MDR zones and 5% in Public Land and Open Space
districts (Lane County Housing Authority).
See also the applicant's response to Goal 9 under Comprehensive Plan Residential Policies.
Staff FindinQ:
These applications comply with Goal 10 because they address the "Eugene-Springfield Metropolitan
Residential Lands and Housing Study, Policy Recommendations Report (1999)" which was adopted by
DLCD and incorporated into the Housing Element of the Metro Plan by all three local jurisdictions in 1999.
These applications will specifically add to the supply of buildable MDR inventory and by implementing the
Nodal Development Area Metro Plan designation in TransPlan Potential Nodal Area 7C and requiring
Master Plan approval prior to development will guarantee that residential development will occur at 12
dwelling units per net acre.
Condition of Approval #8
Submittal of a Master Plan application that demonstrates that residential development will. occur at 12
dwelling units per net acre.
EXHIBIT A - PAGE 41
(
GOAL 11: PUBLIC FACILITIES AND SERVICES OAR 660-015-0000(11)'
"To plan and develop a timely, orderly and efficient arrangement of public facilities and services
to serve as a framework for urban and rural development. " .
Applicant's Submittal:
"Goal 11- Public Facilities and Services: To plan and develop a timely, orderly and efficient
arrangement of public facilities and services as a framework for llrban and rural development.
OAR 660-011-0005(7)(a)-(g) Definition of Public Facilities:
. (a) Water
(b) Sanitary Sewer
(d) Storm ,sewer
(d) Transportation
.,,"
Pursuant of State-wide planning goal 11 , the City of Springfield has adopted or endorsed the following
documents: '
. Eugene-Springfield Metropolitan Area General Plan, revised 2004
. City of Springfield Zoning Map, May 2006
, . Eugene-Springfield Metropolitan Area Public Facilities and Services Plan, 2001
. City of Springfield Stormwater Management Plan, Review Draft.January, 2004 , '
. City of Springfield Stormwater Management Plan, Major Basins/Sub Basins Map, Review Draft,
January, 2004 . ~..'
. City of Springfield Conceptual Road Network Map, Updated July, 2005 ,
. City of Springfield Drinking Water Protection Plan, adopted May, 1999
Response: . .' ,..
The Eugene-Springfield Metropolitan Area General Plan Diagram and the City of Springfield Zoning Map
shows that the~-!l.bject site is inside of the City of Springfield Urban. Growth Boundary. State-wide
Planning Goal 11 ensures that public facilities and services are provided in a timely, orderly, and efficient
manner. This application proposes to amend the Eugene-Springfield Metropolitan Area General Plan
Diagram and will not affect provision and arrangement of public facilities and services. The following
findings demonstrate that the existing publiC facilities and services have the capacity to serve future
development on the subject site and will be provided in a timely, orderly, and efficient manner.
Subsequent planning actions limited to the subject site (i.e. Master Plan and Site Plan applications) in due
time will address the arrangement of public facilities and services on the subject site. See Exhibits 8 and
9 for more information.
Potable'Water Service
The subject site will be served by connecting to existing Springfield Utility Board (SUB) water lines
adjacent to the site. There are six potential water lines adjacent to the subject site to have the capacity to
serve future development. There are two 12" PVC water lines along 28th street have the capacity to serve
development in the southwest portion ofthe subject site. There is an 18" water line in the Right-of- Way of
31st street that has the capacity to serve future development. Currently, there are two 10" water lines that
can serve future development on the west portion of the subject site. One of these water lines in located.
approximately 100' north of the center line of Bonnie Lane and the other is approximately 120' south of
the center line of Bonnie Lane. Additionally, there is a ,16" water line on the south side of Marco/a Road
approximately 1075 ft. west of the intersection of Marcola Road and 28h street that has the ability to serve
development in the southern portion of the subject site. The water lines in Marco/a Road and' 31st Street
contain sufficient capacity to serve the site. Therefore, this key urban service will be provided in an
orderly and efficient manner.
EXHIBIT A - PAGE 42
Sanitary Sewer
The City of Springfield provides sanitary sewer service for lands within the City of Springfield city limits.
The subject site is within the City of Springfield city limits and can be served by connecting to existing
sanitary sewer lines adjacent to the property. The subject site is located in the North Springfield waste
water basin and currently has adequate capacity. A 42" concrete main line for the City of Springfield
traverses the lower third of the subject site that flows east to west and collects all sanitary sewer water for
the subject site with some fill required in the north. The northeast corner of the project will be served by
an existing sewer in 31st Street. Currently, this main line has the capacity to facilitate the proposed
development's sanitary sewer needs.
. There are three sewer lines that connect to the main trunk line on the subject site; an 8" PVC line '
connects to the main trunk line from the south, approximately 250' west of the intersection of 2fih street ;
and Pierce Parkway; an 8" PVC line running north and south along 31st street connects to the main trunk
line from the north in the public Right-of-Way for 31st street; an 10" concrete line running north and south
connects to the main trunk line from the north, approximately 240' west of the northwest boundary of the
subject site. Therefore, this key urban service will be provided in an orderly and efficient manner.
~~~ ".
The project area is currently served by Marcola Road, 28th, and 31st streets. Marcola Road, the southern
border of the subject site, is fully improved and is designated as a Minor Arterial. 2fih and 31st streets
border the eastern boundary of the subject site. The City of Springfield's Conceptual Road Network Map
identifies 28th and 31st streets as the "31st Street Connector". The 28th street portion of the 3'1stStreet
Connector is fully improved and classified as a Collector street. Thirty-First Street is notfully improved
and also is classified as a Collector street. Currently, 31st street is a two-lane asphalt paved road that
does not have gutters, curbs, or sidewalks, although there is a City of Springfield 10' utility and sidewalk
easement on the west side of 31st street to facilitate road improvements in the future.
In this section of this statement addressing State-wide Planning Goal 12 - "Trimsportation" there are
additional findings regarding public facilities and services, and those discussions are hereby referenced
and incorporated.
Storm Water Control.
The subject site is located in #18 Sub-Basin of the West Springfield/"Q" Street Major Basin. Storm water
facilities will be designed as a component of subsequent land use approvals to meet City of Springfield
storm water policies and regulations. Preliminary storm water plans will keep the development's storm
water runoff rates equal to pre-development peak storm water runoff rates. This will be achieved through
multiple on-site detention ponds, bio-swales, and open-channels. See Exhibits 8 and 9 for more
information.
Conclusion:
The subject site is inside of the Eugene-Springfield Metropolitan Urban Growth Boundary and City of
Springfield city limits. This enables public facilities and services to be extended to the site in a timely,
orderly, and efficient manner. The subject site has existing publiC facilities and services adjacent to the
site which also have the capacity to serve future development. Therefore, this amendment is in
compliance with Goal 11. "
Staff's Respons~:
Staff concurs with the applicant's submittal. Goal 11 calls for efficient planning of public services such as
sewers, water, law enforcement, and fire protection.
The Eugene-Springfield Metropolitan Public Services and Facilities Plan (PFSP), ad revised in December
2001, is a refinement plan of the Metro Plan that guides the provision of public infrastructure, including
water, sewer, storm water management, and electricity. The PFSP specifically evaluated the impact of
nodal development and increased development densities on the potential node sites being considered in
the Springfield area.
__,~!_HIBIT ~ - 'pAGE 43
The PFSP is supportive of mixed-use and nodal development. Findings in the PFSP conclude that most
potential nodal development sites can be provided with key urban service using existing infrastructure
capacity (Finding #10, PFSP, page 11).' Based on this conclusion, Policy #G7 in the PFSP states,
"Service providers shall coordinate the provision of facilities and services to areas targeted by the
cities for higher densities, infill, mixed uses, and nodal development" (PFSP, pg. 12). These
applications do not preclude the coordination of services in nodal areas.
All urban services needed for existing uses and new development are available to the subject site and
other vacant properties in this area, including fire and police protection, parks, sanitary and storm sewer,
public transportation, schools, street systems and utilities. The property is served by Springfield Utility
Board for water and electricity; by Willamalane Park and Recreation District; by School District 19; and by
the City of Springfield for maintenance of sewers, streets, alleys, library and developrnent and permit
services. .
Staff Findina:
These applicationscomply with Goal 11 because there are urban level public services available to the
subject site. .
GOAL 12: TRANSPORTATION
"To provide and encourage a safe, convenient and economic transportation system."
Applicant's Submittal:
"Goal 12 is implemented through Division 12rnAR 660-012-0000 et. seq. The goal and division are
implemented at the local level by the Eugene-Springfield Metropolitan Area Transportation Plan
(TransPlan) acknowledged for compliance with Goal 12 in 2001.
Plan amendments and land use regulation amendments are regulated under OAR 660-012-0060, the ..
'Transportation Planning Rule.' If an amendment significantly affects a transportation facility, a local
government must provide a form of mitigation. OAR 660-012-,0060(1) states:
'A plan or land use regulation amendment significantly affects a transportation facility if it would:
(a) Change the functional classification of an existing or planned transportation facility (exclusive
of correction of map errors in an adopted plan); ,
(b) Change standards implementing a functional classification system; or
(c) As measured at the end of the planning period identified in the adopted transportation system
plan:
(A) Allow land uses or levels of development that would result in types or levels of travel or
access that are inconsistent with the functional classification of an existing or planned
transportation facility;
(B) Reduce the performance of an existing or planned transportation facility below the minimum
acceptable performance standard identified in the TSP or comprehensive plan; or
(C) Worsen the performance of an existing or planned transportation facility that is otherwise
projected to perform below the minimum acceptable performance standard identified in the TSP
or comprehensive plan.'
OAR 660-012-0060(1):
EXHIBIT A - PAGE 44
With regard to OAR 660-012-0060(1)(a) and (b); the proposed Post Acknowledgement Plan Amendment,
(PAPA) would not change the functional classification of any transportation facility, nor wouldit change .
the standards for implementing a functional classification system.
With regard to OAR 660-012~0060(1)(c)(A), the PAPA would not allow types or levels of uses which
would result in levels of travel or access which are inconsistent with the functional classification of a
transportation facility. The policies of the City of Springfield Development Code and the TransPlan
establish the requested plan designation as appropriate to the classification of the streets serving the site.
Specific requirements for access to those streets will be determined through the Master Plan and Site
Plan reviews and approved only upon demonstration of compliance with the provisions of the
acknowledged comprehensive plan and implementing regulations.
With regard to OAR 660-012-0060(1)(c)(B) and (C), a Traffic Impact Analysis (riA) evaluating the
performance of existing and planned facilities as a result of the development proposed by this application
has been performed. That T1A .,. is submitted concurrently with this written statement and the findings of
that analysis are hereby incorporated by reference.
TIA Scopina:
When determining the effect of a proposed PAPA, the TPR requires local governments to evaluate
impacts to planned facilities as well as those already existing. According to OAR 660-012-0660(4)(b)(C),
transportation facilities, improvements or services included in a metropolitan planning organization's
federally-approved, financially constrained regional transportation system plan must be included in the
analysis. The Metropolitan Planning Committee adopted the Central Lane Metropolitan Planning
Organization Regional Transportation Plan on December 9, 2004. The MPO-RTP established a planning
horizon of 2025. This is the planning horizon used by the TIA. The following projects (Tables 16, 17 and
18) are within the study area of the TIA and are listed in MPO-RTP 'Table 1 a - Financially Constrained
Capital Investment Actions: Roadway Projects:'
Table 16: Project Category: Arterial Capacity Improvements
Name Geographic Limits Description Jurisdiction
42nd Street @ Marcola Road Traffic control Springfield
improvements
42nd Street at 42nd St/Hwy 126 Traffic control Sprfngfield
Highway 126 improvements
Eugene-Springfield @ Mohawk Boulevard Add lanes on ODOT
Hi hway SR-126) Interchan e ram s
Estimated Length Number
Cost
$248.0HO ' '0 712
$200,000 0 799
$310,000 0.68 821
Description Jurisdiction Estimated Length Number
Cost
V Street 31st Street to Marcola New 2 to 3-lane Springfield $2.173,000 0.65 777
collector
Table 18: Project Category: Urban Standards
Name Geographic Limits Description Jurisdiction Estimated Length Number
Cost
42nd Street Marcola Road to Reconstruct t03 Springfield $2,551.000 1.03 713
Railroad Tracks lane urban
facility
31st Street Hayden Bridge Road to Upgrade to 2 to Springfield $1,300,000 0.85 765
U Street 3.lane urban
facili
Because the ultimate purpose of the proposed PAPA is to gain approval of a master planned
development, transportation modeling of post-development trip generation is based on the street network
depicted in the Preliminary Plan /IIustration. In addition to calculating the maximum impact of future
EXHIBIT A - PAGE 45
development restricted only by the regulations of the proposed plan designation, the TIA employed an
alternative worst-case scenario based on stipulated development restrictions. The level of development
possible llnder the restrictions is far greater than what is proposed by the Preliminary Plan Illustration, but
still results in fewer vehicle trips than the unrestricted worst-case. The TIA compared the impacts of
future development under the existing plan designations, under the proposed plan designations without
restrictions, and under the restricted proposed plan designations. The integrity of the post-development
transportation modeling assumptions can be assured by the conditional approval of the proposed PAPA
and maintained by subsequent site plan review and development constraints. ,
Traffic Imoact: . .
OAR 660-012-0060(1 )(c)(B): Though some facilities within the scope of the study are projected to operate
below the performance standard in the plan year, none will do so as a result of the proposed PAPA:
Those facilities projected to operate below the performance standard in the plan year will do so
regardless of the proposal under review. Therefore, no facilities are significantly affected under this
definition. . .
OAR 660-012-0060(1)(c)(C): Within the scope of the study, one facility that is otherwise projected to
operate below the performance standard in the plan year is made worse by the proposed PAPA.
Therefore, this facility is significantly affected under this definition.
. Mohawk Blvd. @ Eugene-Springfield Hwy. eastbound ramps.
OAR 660-012-0060(3) permits local governments to approve a PAPA that significantly affects a facility
without requiring that mitigations bring the facility up to the applicable performance standards. This is
.... , allowed only where the facility is currently operating below the performance standard and, despite any
planned facilities as defined in Section (4) of the TPR, it is also projected to operate below the .
performance standard in the plan year. Taking into account the planned facilities previously discussed,
the T1A demonstrates that these conditions are met for the facility listed above. OAR 660-012-0060(3)
requires transportation improvements that mitigate the net impact and avoid further degradation in the
development (opening) year. To address impacts at the eastbound ramps of the Mohawk Blvd. @
Eugene-Springfield Hwy. intersection the T1A proposes the following mitigation:
. Traffic control changes allowing left-turns form the eastbound ramp center lane
With regard to OAR 660-012-0060(1)(c)(B) and (C), the analysis has determined that measured at the
end of the planning period the proposed amendment will neither reduce the performance of existing or
planned transportation facilities below the minir(1Um acceptable performance standards identified in
TransPlan nor worsen the performance of transportation facilities that are otherwise projected to perform
below the minimum acceptable performance standard identified in' TransPlan.
Conclusion:
Pursuant to OAR 660-012-0060(1), the proposed PAPA significantly affects a transportation facility. The
TIA proposes to mitigate the degradation of the facility under the conditions of OAR 660-012-0060(3). By
requiring development to meet the conditions of OAR 660-012-0060(3), the City may approve the PAPA
in compliance with OAR 660-012-0060. Therefore, the City of Springfield can find that the proposed
PAPA is consistent with Statewide Planning Goal 12.
, Staff Response:
Staff has evaluated the submitted Marcola Meadows Zone Change TraffiC'impact Analysis (TIA) prepared
by Access Engineering, dated February 20, 2007, with respect to State-wide Planning Goal 12 per
OAR 660-012-0060 and the 1999 Oregon Highway Plan (OHP) as required by SDC 7.070(3)(a). Staff
finds that the assumptions, methods and data used in the TIA are consistent with recognized professional
traffic engineering standards and practices.
-
EXHIBIT A - PAGE 46
Goal 12 encourages development that avoids principal reliance on one mode' of transportation. Mixed
use development is intended to bring people closer to where they shop and work and create, and to
support pedestrian-friendly neighborhoods where walking, bicycling and transit use are attractive
transportation choices. The subject property is located In proposed TransPlan Node 7C.
The Transportation Planning Rule (TPR) (OAR 660-12-0000 - 660-12-0070), adopted in 1991,and last
amended in March 2005 implements Goal 12. The intent of the Transportation Rule is to "...promote the
development of safe, convenient and economic transportation systems that are designed to
reduce reliance on the automobile..." The Metro Plan is Springfield's comprehensive plan
acknowledged LCDC in 1982. TransPlan (the Eugene-Springfield Metro Area's adopted TSP
(Transportation System Plan) is the transportation element of the Metro Plan. DLCD acknowledged the
current TransPlan in 2001. The Metro Plan was also amended at that time to include the Nodal
D~velopment Area land use designation. Both documents implement Goal 12 and the Transportation
Rule in the Eugene-Springfield metropolitan area.
TIA Review Discussion
As discussed in the applicant's submittal above, OAR 660-012-0060 requires a determination as to
whether the proposed amendment would "significantly affect" a transportation facility.
The approach taken in the TIA compares traffic generation estimates for development of the subject site
under "Current" versus "Amended" designation/zoning, assuming "reasonable worst case" development
scenarios. The TIA concludes that the worst-case development scenario under the "Amended"
designation/zoning would generate 50% more daily vehicle trips and 27% more PM Peak-hour trips than
under the "Current" designation/zoning. The report then analyzes a development scenario that would be
less intensive than the "Amended" de-signation/zoning worst case but substantially more intensive than
the "Current" designation/zoning.
Based on analysis of the "Amended Zoning Capped" scenarip, the applicant concludes that by limiting
development to the level assumed in that scenario, ,and requiring minor mitigation in conformance with
OAR 660-012-0060(3), the city can find the proposed PAPA in compliance with OAR 660-012-0060.
The three development scenarios analyzed have assUmed land use and trip generation estimates as
shown in the following tables. .
Table 3: Gross Trips - Current Zoning .
Current land Use (ITE Size Unit ADT PM Peak Hour
Zoning Code)
Rate Trips Rate Trips
MDR Apartment (220) 714.0 Dwelling 6.22 4441 0.57 410
Units
Shopping Center 1000 SF
CC (820) 130.0 GFA 61.95 8054 5.73 744
CI Research & 33.6 Acres 79.61 2675 15.44 519
Develooment (760)
CI Business Park (770) 22.4 Acres 147.91 3313 16.82 377
Total 18,483 2,050
EXHIBIT A - PAGE 41
Table 4: Gross Trips. Amended Zoning Worst Case
Amended land Use (ITE Size Unit ADT PM Peak Hour "
Zoning Code) .
Rate Trips Rate Trips
MDR Apartment (220) 1094.0 Dwelling ,6.15 6725 0.57 619
Units
Improvement Store 1000 SF
CC (862) 171.0 GFA 29.80 5096 2.45 419
Shopping Center 1000 SF
MUC (820) 350.0 GFA 43.80 15331 '.4.09 1431
50.0 1000 SF 15.65 782 2~70 135
General Office (710) GFA
Total 27;935 2,604
Table 4C: Gross Trips. Amended Zoning Capped
Amended land Use (ITE Code) Size Unit ADT PM Peak Hour
ZoninCl
, Rate Trips Rate Trips
Single-Family Residential 230 9.73 2237 ,0.99 227
MDR (210) 100 Dwelling 6.42 642 0.60 60
Townhouses (230) 400 Units 6.39 2554",,,., 0.59 238
Apartment (220)
CC Improvement Store (862) 171.0 1000 SF 29.80 5096 2.45 419
GFA
1000 SF
MUC Shopping Center (820) 350.0 GFA 49.28 .12320 4.31 1146 .
General Office (710) 50.0 1000 SF 15.65 782 2.70 135
GFA
Total 23,631 2,225
The above development scenarios can be compared with the assumed land uses presented in the
submitted "Preliminary Plan Illustration."
Preliminary Plan Illustration
Amended land Use (ITE Code) Size Unit
Zoning
Single-Family Residential 192 ,.
MDR (210) 123 ' Dwelling
Townhouses (230) 174 Units
Apartment (220)
CC Improvement Store (862) 171.0 1000 SF
GFA
1000 SF
MUC Shopping Center (820) 200.0 GFA
General Office (710) 38.7 1000 SF
GFA
EXHIBIT A - PAGE 48 '
This comparison shows that the development scenario represented by the Preliminary Plan Illustration is
significantly less intense in both MDR and MUC zones than the Amended Zoning Capped scenario, and
would likewise achieve Goal 12 compliance.
Issues
Limitinq Development
In approving a PAPA, the City must ensure that actual transportation impacts of future development on
the property will not exceed the estimated impacts on which a finding of Goal 12 compliance is based.
The applicant proposes to set a limit (trip cap) on the actual number of trips that may be generated by
future development on the site. This approach requires a procedure to measure and monitor site trip
generation as development takes place over time. A Trip Monitoring Plan (TMP) is often used for this
purpose. Under this approach conditions of approval for a PAPA would be that a trip cap be imposed on
the property, and that a TMP be adopted as part of Master Plan approval to establish how adherence to '
the trip cap limit would be maintained over time.
A disadvantage of a TMP approach is that it focuses entirely on trip generation, and places no direct limit
on the type, level or schedule of site development. If and when the site trip cap is reached no more
development would be permitted without amending the liinit.
In the present case, it is more desirable to acknowledge that the Amended Zoning scenario would
significantly affect transportation facilities, and accomplish Goal 12 compliance through a combination of .
the proposed mitigation and "Altering land use designations, densities, or design requirements to reduce
demand for automobile travei and meet travel needs through ottier modes." per OAR 660-012-0060(2)(c).
Limiting designations and densities to those assumed in the Amended Zoning Capped scenario, or a less
'intense scenario, would be sufficient to demonstrate Goal 12 compliance.
Future Traffic Analvsis Requirements
A key feature of the trip generation estimating procedure for various scenarios in the TIA is accounting for
"internal trips." These are trips made between different land uses within a development site, as opposed
to trips that have off-site origins or destinations. Obviously, all the on-site uses involved in this exchange
of internal trips must exist for this concept to have meaning. Because the Goal 12 test is applied at point
15 or more years into the future, assuming full build out of the site presents no issue. However, in a
phased development there is a question about how to address "internal trips" during intermediate years.
Except for the 19 acres proposed to be designated and zoned Community Commercial, the remaining 80
plus acres will be established as a node. The Preliminary Plan Illustration, which will be incorporated into
a Master Plan for the entire site, shows a number of pedestrian/bike connections from the proposed
residential portion in the north to the commercial portion in the south. One way to address the "internal
trip" issue is to condition the Master Plan phasing to require a certain percentage of the residential portion
of the site to be developed with a similar percentage of the commercial. .
Finally, there are additional transportation related issues that will be specifically addressed in the required
Master Plan, but will be conditioned as part of these applications because approval ,of the Master Plan
requires consistency between the Metro Plan designation and the zoning. The applicant has stated that
construction of the home improvement center will be Phase 1 of the proposed Marcola Meadows
development. Therefore, in addition to the resolution of the internal trip issue and the trip cap. discussed
above, staff will require the following conditions of approval as part of the Master Plan Phase 1'.
development: Construction of the entire collector street from Marcola Road to V Street; and Construction
of the internal streets in the MUC and CC portions of the site.
Staff FindinQ: .
As conditioned, these applications comply with Goal 12 because the applicant's traffic impacts analysis
demonstrates that the proposed PAPA would significantly affect a transportation facility,and as
conditioned, degradation of the affected facility would be mitigated per OAR 660-012-0060(3).
EXHIBIT A - PAGE 49
Condition of Approval #9
Submittal of preliminary design plans with the Master Plan application addressing -the proposed mitigation .
of impacts discussed in the TIA. The plans shall show the proposed traffic control changes allowing left-
turns from the eastbound ramp center lane at the eastbound ramps of the Mohawk Boulevard/Eugene-
Springfield Highway intersection. The intent of this condition is to have the applicant demonstrate to
ODOT that the proposed mitigation is feasible from an engineering perspective and will be constructed on '
a schedule that is acceptable to ODOT. Provided that construction of the proposed mitigation is . .'
determined to be feasible, then during Master Plan review and approval a condition shall be applied
requiring the mitigation to be accomplished prior to the temporary occupancy of any uses in Phase 1 of
the development. . .
Condition of Approval #10
Submittal of a Master Plan application that incorporates a "Development Phasing Plan". The intent of this
plan is to address the "internal trip" issue by requiring a certain percentage of the residential portion of the
site to be developed with a similar percentage of the commercial. The specific percentages will be made
part of the approved Master Plan. The intent of this condition is to also ensure that the proposed land
uses in Table 4C do not exceed the individual caps for these uses. . . ,
Condition of Approval #11
Submittal of a Master Plan application that shows the entire length of the collector street from Marcola
Road to V Street being constf:!lcted as part of Phase 1.
Condition of Approval #12
Submittal of a Master Plan application that shows the construction of all streets serving 'the CC and MUC
portions of the subject site being constructed as part of Phase 1.
Condition of Approval #13
Submittal of a Master Plan application that shows proposed connectivity between the residential and
commercial development areas.
Staff Findin~:
As conditioned, these applications comply with Goal 12 because the applicant's traffic impacts analysis
demonstrates that the proposed PAPA would significantly affect a transportation facility, and as
conditioned, degradation of the affecte<;l facility would be mitigated per OAR660-012-0060(3).
GOAL 13: ENERGY CONSERVATION
"To conserve energy. " 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. "
Applicant's Submittal:
"Response:
The purpose of this Metro Plan Diagram Amendment (PAPA) application is to re-designate land on the
subject site to: 1) expand the amount of land designated for Medillm Density Residential; 2) re-designate
the land currently designated for Campus Industrial to Light Medium Industrial and Mixed-Use
Commercial; 3) and re-designated the Community Commercial land on the sllbject site to Mixed-Use
Commercial.
EXHIBIT A - PAGE 50
The Metro Plan is an acknowledged plan by the Oregon Department of Land Conservation and
Development. Therefore, the Metro Plan is currently consistent with the provisions of State-wide
Planning Goal 13. The City of Springfield adopted the Metro Plan (Ordinance No. 6087) on May 17, ,
2004. This application does not amend any component of the Metro Plan that is related to Goal 1 :3 as
adopted by Springfield City council on May 17, 2004. Therefore, this PAPA application is consistent with
the Metro Plan and State-wide Planning Goal 13. "
.
Staff's Response:
Staff concurs with the applicant's submittal. The Energy Goal is a general planning goal and provides little
guidance for site specific comprehensive plan diagram changes. The area in which the subject site is
located is identified in the TransPlan as having potential for nodal development (see the Goal 12
discussion). Development of the subject site with commercial uses has the potential to reduce automobile
trips both in duration and frequency by providing commercial services in close proximity to the proposed
residential areas in the north of the subject site, other existing nearby residential development and
existing and future industrial development to the east. By reducing the frequency, number and duration of
automobile trips the proposal will conserve energy. Nodal development of the type proposed here will
also conserve energy by promoting infill development and intensification of land use within the UGB.
Locating commercial uses in nodal areas rather than in a typical linear fashion will also help conserve
energy. Finally, the development of the subject site will be subject to building codes intended to maximize
energy efficiency. '
Staff FindinQ:
These applications comply with Goal 13 because implementation of NodakDevelopment Area 7C will help
conserve energy.
Goal 14: URBANIZATION
"To provide for an orderly and efficient transition from rural to urban land use."
Applicant's Submittal:
"Response:
All of the parcels affected by this application are currently within the Urban Growth Boundary and were
annexed into the City of Springfield. The annexation was made in compliance with an acknowledged
comprehensive plan and implementing ordinances, and established the availability of urban facilities and
services. Therefore the amendment is consistent with State-wide Planning Goal 14.
Staff's Response:
Staff concurs with the applicant's submittal. Goal 14 requires cities to estimate future growth and needs
for land and then plan and zone enough land to meet those needs. There are three studies that address
this issue:
1. The Eugene-Springfield Metropolitan Residential Lands and Housing Study, Policy
Recommendations Report (1999); .
2. . The Springfield Commercial Lands Study (February 2000) indicated that there is a general shortage
of commercial land for future development; and
3. The Metropolitan Industrial Lands Inventory Report (1992).
Goal 14 also encourages compactforms of development within Urban Growth Boundaries.
EXHIBIT A - PAGE 51
These applications apply to land within the city limits and within the City's Urban Growth Boundary.
Future development approval will increase and intensify land use within the city limits. This alleviates
pressure to urbanize rural lands. The sLibject site is also fully served by urban services and will capitalize
on public expenditures made for this purpose. The proposed amendments address the studies listed
above in responses to Goals 9 and 10 and the availability of public facilities and services in Goal 11.
Staff FindinQ:
These applications comply with Goal 14 because the City has adopted residential, commercial and
industrial land inventories and the subject site is located within Springfield's Urban Growth Boundary.
GOAL 15: WILLAMETTE RIVER GREENWAY OAR 660-015-0005
"To protect, conserve, enhance and maintain the natural, scenic, historical, agricultural, economic ,.
and recreational qualities of lands along the Wilfamette River as the Wilfamette River Greenway. " ,
Applicant's Submittal:
Response:
"The subject site is not within the Willamette River Greenway. Therefore, this goal is not relevant and the.
amendment will not affect compliance with Goal 15.. "
Staff's Response:
Staff concurs with the applicant's response.
. Staff's FindinQ:
Goal 15 is not applicable to these applications because the subject site is not located on or near the ,
Willamette River.
Goals 16 through 19 _ Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean
Resources.
Applicant's Submittal:
"Response:
There are no coastal, ocean, estuarine, or beach and dune resources related to the property or involved
in the amendment. Therefore, these goals are not relevant and the amendment will not affect compliance
with Goals 16 through 19."
Staff's Response:
Staff concurs with the applicant's response.
Staff's FindinQ:
Goals 16 - 19 do not apply in Springfield because they pertain to coastal areas.
Staff's Response and FindinQ:
As conditioned, these applications comply with the applicable State-wide Planning Goals as discussed
above.
E~H!InT A - PAGE 52
SDC Section 7.070(3) "(b) Adoption of the amendment must not make the Metro Plan internally
inconsistent." ' .
Applicant's Submittal:
"Growth Management
Metro Plal1, Policy 1. 'The UGB and sequential development shall continue to be implemented as
an essential means to achieve compact urban growth. The provision of all urban services shall be
concentrated inside the UGB.'
Response:
The two parcels affected by this application are currently within the Springfield portion of the Metropolitan
Urban Growth Boundary and have been incorporated into the City of Springfield. The annexation was
made, in compliance with an acknowledged comprehensive plan and implementing ordinances, and
established the availability of urban facilities and services.
As such, the subject site is providing for compact urban growth and has the essential services available
for development. As defined in the glossary of the Metro Plan, compact urban growth is defined as:
'The filling in of vacant and underutilizedlands in the UGB, as well as redevelopment inside the
UGB'.
The PAPA will allow compact urban growth to occur on lands that are currently within the UGB and
underutilized for an urban area. The development of the site will provide needed commercial employment
opportunities and a/saprovide medium density residential development. .'
Metro Plan, Policy 24. 'To accomplish the Fundamental Principle of compact urban growth
addressed in the text and on the Metro Plan Diagram, overall metropolitan-wide density of new
residential construction, but necessarily each project, shall average approximately six dwelling
units per gross acre over the planning period. ' '
Response:
The proposed development seeks to achieve a density for all residentially designated and zoned land of
approximately twelve dwelling units per net acre. The future development of the site, therefore, will help
the region achieve its goal of compact urban development. .'
Metro Plan, Objective 8. ' Encourage development of suitable vacant, underdeveloped, and
redevelopable land where services are available, thus capitalizing on public expenditures already
made for these services. '
Response:
The subject site is currently underdeveloped with access to readily available public facilities and services.
Approval of this proposal will capitalize on the public services and expenditures already made and
planned for in the immediate area. In short, the underdeveloped subject site is suitable for residential and .
commercial uses (specifically the proposed mixed residential and commercial area) and has access to
public facilities and services.
Metro Plan Specific Elements .
A. Residential Land Use and Housing Element
Response:
With the adoption of the Eugene-Springfield Metropolitan Area General Plan 2004 Update (effective
February 2006) the subject site's residentially designated land was removed from the inventory of land
designated for low-density residential uses and was designated for medium-density residential uses. (An
application concurrent with this application proposes to "fix" the bOllndary of the residentially designated
EXHIBIT A - PAGE 53
land.) Therefore, the current MDR, Medium Density-Residential zone is in compliance with the current
Metro Plan designation. .'
Metro Plan, Policy A.B. 'Require development to pay the cost, as determined by the local
jurisdiction, of extending public services and infrastructure. The cities shall examine ways to
provide subsidies or incentives for providing infrastructure that support affordable housing
and/or higher density housing.' .
The applicant shall conform with City of Springfield requirements for paying the fair cost of extending . ' ....
public services and infrastructure. A variety of housing types are proposed as part of the Preliminary Plan
Illustration including small lot single-family detached, townhomes, apartments, senior cottages and a
congregate care facility. '
Metro Plan, Policy A. 10. ' Promote higher residential density inside the UGB that utilizes existing
infrastructure, improves the efficiency of public services and facilities, and conserves rural
resource lands outside the UGB.'
Metro Plan, Policy A. 11. ' Generally locate higher density residential development near
employment or commercial service, in proximity to major transportation systems or within
transportation-efficient nodes. '
Metro Plan, Policy A. 12. "Coordinate higher density residential development with the provision of
adequate infrastructure and services, open space, and other urban amenities.
Metro Plan, Policy A. 13. 'Increase overall residential density it:! 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. ' .
The proposed Preliminary Plan Illustration development will promote higher density development by
increasing the total supply of medium density designated and zoned land within the metropolitan area.
The applicant is proposing to develop the residential portion of the site. under the Springfield standards for
nodal development, with a minimum net density of 12 units per acre. In addition, the portion that is
proposed as single-family development is proposed under the standards for cluster development with
notably smaller lot sizes and common open space provided. The mix of single-family small lot
development and multi-family development is located near'Potential Nodal Development Area 7C'
(TransPlan) and the applicant is proposing to develop a mix of commercial uses that shall include
employment and commercial opportunities for future residents of the proposed development and existin~
residents of the metropolitan area. The proposed development is located at the intersection of North 28t
Street and Marcola Road approximately one-quarter mile east of the Marcola Road/North 19th Street
intersection with Highway 126; as such this proposed development is in close proximity to major
transportation routes and is designed to be a walkable community that promotes a combination of higher
densities and employment and commercial opportunities.
The proposed Preliminary Plan Illustration development effectively integrates the higher density
development with the existing neighborhoods in several ways. Most importantly the lowest density
development, single-family detached lots, is located adjacent to the residential neighborhoods to the west
and north. The high~rdensityhousing (apartments, cottages and congregate care) is located along the
east side of the subject site, and internally north of the proposed commercial and industrial properties.
The proposed development will minimize the disturbance to existing development while achieving the
city's and regions need for higher density, mixed-use development.
Metro Plan, Policy A. 17. 'Provide opportunities for a full range of choice in housing type, density,
size, cost, and location.' .
EXHIBIT A - PAGE 54
The applicant's proposed Preliminary Plan Illustration includes a variety of housing types including small-
lot single-family development, townhomes, apartments, senior cottages and congregate care. The density
of development is proposed within the desired ranges for medium density residential and includes more
than 20% of common open space for use by the residents of the development. The location of the
housing is central to the proposed nodal development area 7C (TransPlan) and shall provide a variety of
employment and commercial opportunities for the existing residents of the area and future residents of
the development. '
Metro Plan, Policy A. 20. 'Encourage home ownership of all housing types, particularly for low-
income households. '
The applicant's proposed development will include a variety of home ownership options on small single-
family lots and townhome lots. The size of the lots and the options for home ownership will increase the
, supply of affordable ownership housing in the region.
Metro Plan, Policy A. 22. 'Expand opportunities for a mix of uses in newly developing areas and
existing neighborhoods through local zoning and development regulations. '
The proposed Preliminary Plan Illustration increases the mix of uses by providing residential, commercial
(main street, neighborhood retail, professional office) and industrial opportunities, while also infilling in an
area of more typical suburban development. The increased commercial and employment opportunities
will benefit the existing residents and future residents of the development site.
B. Economic Element
Response:
A detailed analysis of Economic Element policies is contained in the applicant's response State-wide
Planning Goal 9 - "Economic Development." Those responses are hereby incorporated by reference.
."'(w'"..
F. Transportation Element
Response:
The project area is currently served by Marcola Road, 28th, and 31st streets. Marcola Road, the southern
border of the subject site, is fully improved and is designated as a Minor Arterial. 2EJh and 31st streets
border the eastern boundary of the subject site. The City of Springfield's Conceptual Road Network Map
identifies 28th and 31st streets as the "31st Street Connector." The 28th street portion of the 31st Street
Connector is fully improved and classified as a Collector street. Thirty-First Street is not fully improved
and is classified as a Collector street. Currently, 31st street is a two-lane asphalt paved road that does
not have glltters, curbs, or sidewalks. There is a City of Springfield 10' utility and sidewalk easement on
the west side of 31st street to facilitate road improvements in the future. .,
Additional information in this statement's response to State-wide Planning Goal 12 - "Transportation" is
hereby referenced and incorporated.
Metro Plan, Policy F.1: 'Apply the nodal development strategy in areas selected by each
jurisdiction that have identified potential for this type of transportation-efficient land use pattern.'
Response:
The subject site is identified in TransPlan as "Potential Nodal Development Area" 7C. The applicant
seeks to develop the majority of the site under the nodal standards as 'detailed in the Springfield
Development Code. The applicant's proposed development will include residential, industrial and
commercial development creating a mix of uses that complements the nodal standards.
Metro Plan, Policy F.13. 'Support transportation strategies that enhance neighborhood livability. '
Metro Plan, Policy F. 14: 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.
EXHIBIT A - PAGE 55
Metro Plan, Policy 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.
Response: '
The proposed development shall be served by the existing streets (Marco/a Road, North 28th Street,
North 31st Street) and future streets including a collector and local streets. It will be easy to get around,
and to do so on foot All streets will have wide sidewalks, any of them setback from vehicle traffic. The
entire community will be connected with all-weather multi-use off street pathways. It will be convenient,
and safe, to wall from one Village to the next
Metro Plan, Policy F.36. 'Require that new development pay for its capacity impact on the
tr.ansportation system.
Response:
Based on the Traffic Impact Analysis, the PAPA will not have a capacity impact upon the transportation
system. Please see Attachment 1, TIA for more information.
A detailed analysis of the PAPA's consistency with the State Transportation Planning Rule, OAR Division
12, 660-012-0000 et. seq., (TPR) is contained in the applicant's response State-wide Planning Goal 12 -
"Transportation." Those responses are hereby incorporated by reference. With regard to the
Transportation Element of the Metro Plan, the City can find that the proposed PAPA will not make the
Metro Plan internally inconsistent
G. Public Fa(::i/ities and Services Element
Metro Plan, Policy G.1. I Extend the minimum level and full range of key urban facilities and
services in an orderly and efficient manner consistent with the growth management policies in
Chapter II-B, relevant policies in this chapter, and other Metro Plan policies.'
Response:.
The two parcels affected by this application are currently within the Urban Growth Boundary and were
annexed into the City of Springfield. The annexation was made in compliance with an acknowle.dged
comprehensive plan and implementing ordinances, and established the availability of urban facilities and
services. A detailed analysis of the availability of those services is contained in the applicant's response
State-wide Planning Goal 11 - "Public Facilities and Services." Those responses are hereby
incorporated by reference. .
Metro Plan, Policy G.5. 'Consider wellhead protection areas and surface water supplies when,
planning stormwater facilities. 1 .
Response:
A stormwater management plan shall be created during the master plan process. Special emphasis will
be placed upon the wellhead protection area and surface water supplies when planning stormwater
facilities. See Exhibits 8 and 9 for more information.
H. Parks and Recreation Element
Response:
The changes proposed by this application wi!! have no impact on any recreation area, facility or .
opportunity that has been inventoried and designated by the Metro Plan or any relevant facility plan
regarding the City's recreational needs. The recreational needs of the community are adequately met by
the existing and planned facilities enumerated in the Willainalane 20-year Park and Recreation
Comprehensive Plan, 2004 and other associated documents. A detailed analysis of the subject site in
relation to the various parks and recreation system studies, inventories, refinement plans, and facilities
plans is contained in the applicant's response State-wide Planning Goal 8 - 'Recreation.' Those
responses are hereby incorporated by reference. With regard to the Parks and Recreation Element of the
Metro Plan, the City can find that the proposed PAPA will not make the Metro Plan internally inconsistent.
EXHIBIT A - PAGE 56
I. Historic Preservation Element
Response:
The changes proposed by this application will have no impact on any historic resource that has been
inventoried and designated by the Metro Plan or any relevant facility plan or inventory regarding the City's
historic resources. With regard to the Historic Preservation Element of the Metro Plan, the City can find
that the proposed PAPA will not make the Metro Plan internally inconsistent.,
J. Energy Element,
Metro Plan, Goal 1 : Maximize the conservation and efficient utilization of all types of energy.
Response:
The proposed PAPA and subsequent development of the site will encourage conservation and efficient
utilization of energy by a concentration of employment, services and residences on the site, and enabling
transit services to the site. '
Metro Plan, Policy J.3. ' Land allocation and development patterns shall permit the highest
possible current and future utilization of solar energy for space heating and cooling, in balance
with the requirements of other planning policies; and'
Response:
The applicant shall design future development according the standards of the Springfield Development
Code includes all standards relevant to solar orientation. .,
Metro Plan, Policy J.8. 'Commercial, residential, and rGueationalland 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.'
Response:
The requested approval of the PAPA proposed herein, if approved, will enable the subsequent zone
changes and development of a master planned mixed use development that shall provide employment,
services and residential opportunities (see Prelimihary Plan Illustration. ..). The proposed development
envisions a series of eight (8) villages that include main street retail, neighborhood retail, general retail
and residential uses (single-family detached, townhomes, apartments, senior cottages and congregate
care.) Workers and residents will have the option to obtain dining, shopping, and other commercial
amenities less than a mile from the subject site consistent with Policy J.8's mandate to balance all
planning policies to reduce travel distance. Existing residential neighborhoods are adjacent to the subject
site. The presence of schools andthe Willamalane Park to the north provides proximity to recreational
land uses. .
Because the amendments facilitate development of an integrated master planned mixed-use .
development with a mix of commercial, residential and adjacent industrial zoning near recreational land
uses (all within reasonable walking distance, which allows mixing of uses and reduces travel distances) it
is consistent with this policy (see PrelifTJinary Plan Illustration... for more information).
K. Citizen Involvement Element
Metro Plan, Goal, ' Continue to dev~/op, maintain, and refine programs and procedures that
maximize the opportunity for meaningful; ongoing citizen involvement in the community's
planning and planning implementation processes consistent with mandatory statewide planning
standards. '
Response: As noted in applicant's findings regarding State-wide Planning Goal 1 , Citizen Involvement,
the City's acknowledged program for citizen involvement provides citizens the opportunity to review and
make recommendations in written and oral testimony on the proposed PAPA, consistent with Goal 1. The
action proposed is consistent with and does not amend the citizen involvement element of the Metro Plan.
EXHIBIT A - PAGE 51
Aspects of the Metro Plan that have not been discussed within this application will be dealt with dllring
future development proposals including ~ite review and conditional use permit. " .
Staff's Response:
Staff concurs with the applicant's submittal concerning applicable Metro Plan policies. There are two
discussion topics in this response: 1) The citing of additional Metro Plan text; and 2) Whether the PAPA
makes the Metro Plan internally inconsistent. The "internally inconsistent" discussion was raised in the
applicant's response to Goal 9, above, but is more appropriately discussed under this criterion.
1. Additional Metro Plan Text:
"B.23 Provide for limited mixing of office, commercial, and industrial uses under procedures which
clearly define the conditions under which such iJses shall be permitted and which: (a) preserve the '.
suitability of the affected areas for their primary uses; (b) assure compatibility; and (c) consider the ,.
potential for increased traffic congestion."
"' . .' , '"
. .' .
These applications address "Marcola Meadows", west of 28th/31st S'treetS. The TransPlan Potential Nodal.......,
Development Areas Map shows proposed Node 7C includes areas east of 28th/31 st Streets. The southern .
portion of this area is zoned and designated Light-Medium Industrial. This area is almost fully developed.
The northern portion of this area is zoned and designated Low Density Residential. This area is fully
developed. The point is thatthe "greater area" of Proposed Nodal Development Area 7C will complywith,
Policy 8.23 by providing "for limited mixing of commercial and industrial uses while preserving the area for
industrial uses". ' . .
.:Q,or::_-
The definition of nodal development area is provided in the Metro Plan:
, "
, ' ,
"Nodal Development Area (Node): Areas identified as nodal development areas in TransPlan are.
considered to have potential for this type of land use pattern. Nodal development is a mixed use, '
pedestrian friendly land use pattern that seeks to increase concentrations of population and
employment in well defined areas with good transit service, a mix of diverse and compatible land
uses, and public and private improvements designed to be pedestrian anp transit oriented. ,
Fundamental characteristics of nodal development require:
. Design elements that support pedestrian environments and encourage transit use and
bicycling; ..
. A transit stop which is within walking distance (generally within ~ mile) of anywhere in the
node;
. Mixed uses so that services are available within walking distance;
. Public spaces, such as parks, public and private open space, public facilities, that can be
reached without driving; and . '
. A mix of housing types and residential densities that achieve an overall net density of at
least 12 dwelling units per net acre"
Approval of applications will allow the area to realize the nodal development potential identified in
TransPlan (7C) consistent with the definition of Nodal development cited above. Transportation issues
are more fully addressed under the Goal 12 discussion. The applicant has also submitted a Pr.eliminary
Plan Illustration, an example of what the required Master Plan application, which is a condition of
approval of these applications, may look like.
The Transportation Element of the Metro Plan supports the applicant's proposal. The compact development
configuration proposed by the applicant will reduce dependence on the automobile, shorten trip lengths,
reduce trip frequency, shorten trip duration, and lower systems costs. The proposal will limit air pollution
and urban sprawl. The proposed applications are consistent with the Growth Management Principles of the
Plan that encourage compact growth and carries out the intent of the Transportation Element.
EXHIBIT A - PAGE 58
2. Whether the PAPA makes the Metro Plan Internally Inconsistent.
The purpose of the Metro Plan's economic element is to implement State-wide Planning Goal 9: "...to
diversify and improve the economy of the state. In order to grow the region's economy it is essential
that the supply, of land in each zoning designation include not only sites sufficient in size to
accommodate the needs of the commercial or industrial operations (including expansion), but also
includes sites which are attractive from the standpoint of esthetics, transportation costs, labor
costs, . . . proximity to markets, and anticipated growth of local markets...."
The applicant has addressed the following Economic Element Policies in the response to Goal 9, above:
"B.6 Increase the amount of undeveloped land zoned for light industrial and commercial uses
correlating the effective supply in terms of suitability and availability with the projections of
demand. '" .
"B.12 Discourage future Metropolitan Area General Plan Amendments that would change
development-ready industrial lands (sites defined as short-term in the Metropolitan Industrial Lands'
Special Study, 1991) to non-industrial designations."
In the response to Goal 9, theapplicant has demonstrated that the SCLS shows a shortage of commercial '
land and the MIUR shows a surplus of industrial land in Springfield.
Under Policy B.6, the sLJpply of commercial land does not correlate with demand. A real life example is the
actual "commercial" demand in the Gateway CI District as shown on the applicant's Table 7 (see Goal 9).
This T",wle lists all of the existing businesses in that district. In a district that requires 60 percent of the
acreage to be dedicated to light industrial uses, there is currently only one such use; Shorewood Packaging,
which was constructed in 1997. Since that time no light industrial use has gone into the Gateway CI District.
There has been noel development applications ever submitted for the subject site. Redesignation and .
rezoning were identified as methods to increase the supply of commercial land in the SCLS. Any rezoning
essentially reduces other land use inventories, especially the CI District. Approval of these applications will
exchange an industrial development ready site for a predominantly commercial development ready site. In
light of any more up~t6:clate commercial/industrial land studies, one must use the existing studies which
were adopted with 20 year horizons in order to comply with the Metro Plan and ultimately Goal 9 (see the
CIBL discussion under Goal 9). These applications will add a total of 34 acres of Community Comm~rcial
and Mixed Use Commercial to the commercial land inventory and facilitate the provision of commercial
services to residents of the area and employees of current and future industrial development east of
28th/3151 Streets that comprise Proposed Nodal Development Area 7C. .
Under Policy B.12, staff contends the "discourage" language does not contain an outright prohibition on
changing development ready industrial sites to non-industrial (commercial and residential) designations. It is
important to keep in mind that when making decisions based on the Metro Plan, not all of the goals and
policies can be met to the same degree in every instance; some of the goals, objectives and policies
conflict. Therefore, use of the Policy B.6 suggests correlating the supply of land zoned for Industrial and
commercial uses with demand. Given the surplus of industrially zoned land and the deficit of commercial
land there is not a correlation between existing supply and demand for the two categories. The "correlation
, policy" conflicts with Policy B.12which discourages rezoning development ready industrial parcels to other
designations. Given the deficit of ~omm~rciallands in the City, staff contends the policy of correlating
existing supply with demand is more important than the policy of not convertin'g development ready light
medium industrial sites to other uses.
The requirement ofthis criterion that adoption of these proposed applications not make the Metro plan,
internally inconsistent does not mean that every goal, objective, finding and policy of the Metro Plan must
support these applications. Because of recognized conflicts in the Metro Plan, the proper inquiry is
whether on balance the most relevant of the Plan policies support the Metro Plan Diagram Amendment.
The applicant submitted findings the various Metro Plan policies cited above and in response to Goal 9
EXHIBIT A - PAGE 59
which are beneficial to the Planning Commission and City Council in weighing the relevant portions of the
Metro Plan as they perform the required balancing. .
, '
The Planning Commission and the City Council should determine if the applicant and staff demonstrate
that in order to comply with Statewide Planning Goal 9, Metro Plan policies and adopted land inventories ..
that Campus Industrial land should be converted to commercial and residential and that conditions that
applied during the Home Depot review process in 2001 have changed. Staff contends these issues have
been addressed in this staff report and recommends approval of these applications, with conditions. In .
making their decisions, the Planning Commission and the City Council should consider the impact of
piece-meal conversions on the future availability of developable industrial land, regardless of current
trends. Given this situation and the requirement that the City maintain an adequate supply of commercial
land as well as industrial land, the Planning Commission and City Council must make a choice. The basis of ,
th.is choice is - will approval of these applications be in the best interests of Springfield's citizens ... '
Staff's Finding:
The text of the Metro Plan, specifically the policies, supports this criterion in much the same way that
these applications were found to be consistent with the applicable State-wide Planning Goals (especially' ..
Goals 9 and 12). The Metro Plan policies cannot exist without acknowledgement and acknowledgment .
cannot exist without findings of Goal consistency.
x. SPRINGFIELD ZONING MAP AMENDMENT CRITERA AND FINDINGS
SDC Article 12 describes the criteria to be used in approving a Springfield Zoning Map amendment. SDC
Section 12.030(3) lists: "Zoning Map amendmenk;riteria of approval: (a) Consistency with
applicable Metro Plan policies and the Metro Plan diagram; (b) Consistency with applicable
Refinement Plans, Plan District maps, Conceptual Development Plans and functional plans; and .
(c) The property is presently provided with adequate public facilities, services and transportation.
networks to su'pport 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 shal/:1. Meet the approval criteria
specified in Article 7 of this Code; and .2~ Comply with Oregon Administrative Rule (OAR) 660-012-
0060, where applicable" . '
SDC Section 12.030(3)(a)" Consistency with applicable Metro Plan policies and the Metro Plan
diagram;" .
Applicant's Submittal:
"Response:
The adopted Metro Plan 'Land Use Diagram' (2004 update) shows three land use designations
on the subject site: Campus Industrial, Commercial and Medium Density Residential [see .
Attachment 2]. A Metro Plan diagram amendment changing the land use designations is under
concurrent review with this zoning map amendment application. If the concurrent amendment to the
Metro Plan diagram changing the allocation of land use designations for the property is approved, the
proposed Zoning Map Amendment will be consistent with and implement the Metro Plan 'Land Use
Diagram. .~
Note: The applicant cited the same Metro Plan policies in the response to this criterion that were used in
addressing SDC 7.070(3)(b). Therefore, those citations are not listed again in the applicant's response to
this criterion.
EXHIBIT A - PAGE 60
Staff's Response and Findino:
The applicant has cited "consistency with Metro Plan policies and the Metro Plan diagram" in the
response to SDC Section 7.070(3)(b), above. Staff found that the applicant complied with that criterion
and therefore, complies with criterion 12.030(3)(a).
SDC Section 12.030(3)(b) "Consistency with applicable Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans; and"
Applicant's Submittal:
"Response: ,
A Conceptual Development Plan (CDP), previously created for the 56 acres of existing Campus Industrial
, (CI) zoning on the subject site per SDC 21.020, was approved by the City of Springfield in 1999 (file
number 98-02-47). SDC 21.020 states that: 'A Master Plan shall comply with any applicable
approved Conceptual Development Plan or upon approval of a Master Plan or Site Plan for the
entire CI District, the Master Plan or Site Pian may supplant and take precedence over an
approve.d Conceptual Development Plan.' This proposed zone change, if approved, shall remove the
CI zoning from the subject site and a forthcoming Master Plan application [see Attachment - Preliminary
Plan Illustration] for the entire subject site (including all land within the previously adopted CDP)
, consistent with these amendments shall be submitted to the City; as such, the previously approved CDP .
will be supplanted by the forthcoming Master Plan per SDC 37.010 et seq.. As such a finding of
consistency with the conditions of the previously adopted CDP (98-02-47) is not applicable to this
proposal. "
Staff's Response:
The subject site is not within an adopted refinement plan or plan district. The applicant cites the 1999
Conceptual Development Plan for the CI portion of the property. Staff concurs with the applicant's
submittal concerning that plan. There are no other plans specific to this property.
Staff's Finding:
These applications comply with SDC Section 12.030(3)(b) because there are no applicable refinement
plans or plan districts that currently apply, and upon approval of these applications, the current
Conceptual Development Plan will no longer apply. However, there will be a Master Plan that applies to
the entire subject site that is a condition of these applications.
Section 12.030(3)(c) "The property is presently provided with adequate public facilities, services
and transportation' networks to support the use, or these facilities, services and transportation
networks are planned to be provided concurrently with the development of the property. "
Applicant's Submittal:
"Response:
, The discussion of compliance with Statewide Planning Goal 11 - 'Public Facilities end. .'
Services,' and Goal 12 - Transportation' in the findings regarding the Statewide Planning
Goals [see the applicant's response to SDC 7.070(3)(a) that] are incorporated herein by reference. With
the findings established and referenced herein, the proposal complies with this criterion.
Staff's Response:
Staff concurs with the applicant's statement. Criterion (c) is also addressed in staffs response to Goals
11 and 12, under criterion 7.070(3)(a).
EXHIBIT A - PAGE 61
Staff's Finding:
The applicant has shown that the subject site can be served by urban services in the response to SDC
Section 7.070(3)(a), above. Staff found that the applicant complied with that criterion and therefore, '
complies with criterion 12.030(3)(c).. ' .
Section 12.030(3)(d) "Legislative Zoning Map amendments that involve a Metro Plan Diagram
amendment shall: 1. Meet the approval criteria specified in Article 7 of this Code; and 2. Comply
with Oregon Administrative Rule (OAR) 660-012-0060, where applicable. ". '
Staff's Response and Finding:
These applications comply with SDC Section 12.030(3)(d) because this criterion is addressed in staffs
response to SDC Section 7.070(3) used in approving a Type II Metro Plan amendment; and the response' .
to State-wide Planning Goal 12 ir:J SDC Section 7.030(3)(a) in particular. . '
XI. CONCLUSION, RECOMMENDATION OF STAFF AND RECAP OF CONDITIONS
The Metro Plan's economic element begins with a background discussion of the" ,. .a) a decline in the .
lumber andwood products industry as a source of employment; (b) limited increase in
employment in other manufacturing activities; (c) diversification of the non-manufacturing
segments of the local economy, primarily in trade, services, finance, insurance, and real estate;
and (d) the development of this metropolitan area as a regional trade and service center serving
..., southern and eastern Oregon,"
The Special Light IndustriallCampus Industrial designation was adopted to assist in the diversification of
the metro area's economy in the transition after the wood products industry decline. Staffs discussion in
Goal 9 details the history of this designation and zoning district. However, change has rapidly occurred in '
the "high-tech" industry, so that the SONY site where music CDs were produced for about 5 years has
closed due to "new technologies" and has been replaced with a medical research facility. The "Pierce"
property has been "shovel ready~ for-,.over 30 years and has not been developed. Has the demand for the
light industrial manufacturing uses originally intended for the CI district disappeared? The applicant's
Table 7 shows that there is only one manufacturing facility in the Gateway CI, Springfield's other CI
District. If these applications are approved, there will still be over 100 acres of CI zoned and designated
vacant land in the Gateway CI District.
Approval of these applications will implement TransPlan Nodal Development area 7C, resulting in a
master planned commercial/residential mixed use development for the entire site.
In the Executive Summary, staff stated there were two primary Goals 9 and 10 that needed to be
addressed. Staff contends that, as conditioned, these applications addressed both Goals and all other
applicable criteria of approval.
However, in making their decisions, the Planning Commission and the City Council should consider: 1)
Lacking an upd~ted commercial and industrial land study, will the City be better served by converting
Campus Industrial land to Commercial and Multi-family Residential; and 2) Will Springfield's citizens,
especially the ne:ghbors, be assured that a~quality", development will be constructed over-time.
Re-cap of Conditions of Approval:
Condition of Approval #1
The submittal and approval of a Master Plan application prior to any development on the subject site.
EXHIBIT A - PAGE 62
Note: The applicant has stated the intent to submit a Master Plan application. Rather than require a
separate Memorandum of Understanding or similar document at this time, staff is highlighting potential
issues as part of these applications that must be addressed during the Master Plan approval process.
The Metro Plan diagram and Zoning Map amendment applications are concurrent. SDC Section 12.040
gives the City authority to add conditions "...as may be reasonably necessary in order to allow the '
Zoning Map amendment to be granted." The Master Plan application process will require a public
hearing and approval by the Planning Commission. This note applies to all of the additional conditions of
approval that relate to the required Master Plan application.
Condition of Approval #2
Submittal of documentation from the Department of State Lands and/or the Army Corps of Engineers with
the Master Plan application demonstrating the existing drainage ditch is not a regulated watercoursel
wetland, and if necessary, submittal of a wetland delineation for other wetlands that may be on the
subject site.
Condition of Approval #3:
Submittal of a Master plan application that incorporates the relocation of the existing drainage ditch and
conversion to a major water feature that will be an integral part of the proposed dev'elopment area. The
construction of the entire water feature must be completed as part of the Phase 1 development.*
* The applicant has stated that Phase 1 will include the home improvement center. This means that this
and all other conditions referencing "Phase 1" must be incorporated into proposed Master Plan Phase 1
development.
Condition of Approval #4
Submittal of a Master Plan application that addresses compliance with the Drinking Water Overlay District
standards in SDC Article 17 and how these regulations will be applied for each proposed phase.
Condition of Approval #5:
Submittal of a Master Plan application that addresses the relationship of the proposed development to
Willamalane's future park on the north side of the EWEB Bike Path and an explanation of any
coordination efforts with Willamalane concerning the timing and development of the future park
Condition of Approval #6
Submittal of a Master Plan application that addresses coordination with EWEB to determine if any
easements are required in order to cross the EWEB Bike Path to access the future park. '
Condition of Approval #7
Submittal of a Master Plan application that shows the proposed home improvement center building
design similar to the existing building in Scottsdale, Arizona or a building design that complies with the
current building design standards in SDC Article 21.
Condition of Approval #8
Submittal of a Master Plan application that demonstrates that residential development will occur at 12
dwelling units per net acre.
EXHIBIT A - PAGE 63
Condition of Approval #9
Submittal of preliminary design plans with the Master Plan application addressing the proposed mitigation
of impacts discussed in the TIA. The plans shall show' the proposed traffic control changes allowing left-
turns from the eastbound ramp center lane at the eastbound ramps of the Mohawk Boulevard/Eugene-
Springfield Highway intersection. The intent of this condition is to have the applicant demonstrate to
ODOT that the proposed mitigation is feasible from an engineering perspective and will be constructed on
a schedule that is acceptable to ODOT. Provided that construction of the proposed mitigation is .
determined to be feasible, then during Master Plan review and approval a condition shall be applied
requiring the mitigation to be accomplished prior to the temporary occupancy of any uses in Phase 1 of
the development.
Condition of Approval #10
Submittal of a Master Plan application that incorporates a "Development Phasing Plan". The intent of this
plan is to address the "internal trip" issue by requiring a certain percentage of the residential portion of the
site to be developed with a similar percentage of the commercial. The specific percentages will be made
part of the approved Master Plan. The intent of this condition is to also ensure that the' proposed land
uses in Table 4C do not exceed the individual caps for these uses.
Condition of Approval #11
Submittal of a Master Plan application that shows the entire length of the collector street from Marcola
Road to V Street being constructed as part of Phase 1. '
Condition of Approval #12
Submittal of a Master Plan application that shows the construction of all streets serving the CC and MUC
portions of the subject site being constructed as part of Phase 1.
Condition of Approval #13
Submittal of a Master Plan application that shows proposed connectivity between the residential and
commercial development areas.
Conclusion and Recommendation:
As conditioned, staff has demonstrated that the proposed applications comply with the applicable criteria
of approval listed in SDC Sections 7.030 and 12.030. .
Staff recommends the Planning Commission: Approve the attached Order and forward the proposed
applications, as may be amended, to the City Council with a recommendation for adoption.
E:~,~IBI~T A - PAGE 64
e
e.
e
EXHIBIT B
K & D ENGINEERING, Inc.
Engineers · Planners · Surveyors
Legal description
For
"Marcola Meadows" Comp Plan and Zone Change
\
Two (2) Parcels oflalld located in Springfield, Oi'egon that are more particularly
described as follows:
Parcell
Beginning at a point on the 1'lorth margin of Marcola Road, said point being North 89.
57' 3D" East 2611.60 feet and North 00' 02' 00" West 45.00 feet from the Southwest
corner of the Felix Scott Jr. D.L.C. No. 51 in Township 17 South, Range 3 West of the
Willamette Meridian; thence along the North margin of Marcola Road South 89' 57' 3D"
West 1419.22 feet to the Southeast corner of Parcell of Land partition Plat No. 94-
P0191; thence leaving the North margin of Marcola Road and running along the East
boundary of said parcell and the Northerly extension thereof North 00' 02' DO" West
516.00 feet to a point on the South boundary of NICOLE PARK as platted and recorded in
File 74, Sli.des 30-33 of the Lane comity Oregon plat Records; thence along the South
boundary of said NICOLE PARK North 89' 57' 3D" East 99.62 feet to the Southeast corner
of said NICOLE PARK; thence along the East boundary of said NICOLE PARK North 00' 02'
AD" West 259,82 feet to the Northeast corner of said NICOLE PARK, thence along the
North boundary of said NICOLE PARK South 89' 58' DO" West 6.20 feet to the Southeast
corner of LOCH LaMOND 'rERRACE FIRST ADDITION, as platted and recorded in Book 46, Page
20 of the Lane County Oregon Plat Records; thence along the East: boundary of said LOCH
LaMOND TERRACE FIRST ADDITION North 00' 02' 00" West 112.88 feet to the Southwest
corner of AUSTIN PARK SOUTH as platted and ,recorded in File 74, Sli.des 132-134 of the
Lane County Plat Records; thence along the South boundary of said AUSTIN PARK South
North 09' 58' OO"East 260.00 feet to the Southeast corner of said AUSTIN PARK South
thence along the East boundary of said AUSTIN PARK South North 00' 02.' 00" West 909.69
feet to the Northeast corner of said Austin Park South, said point being on the South
boundary of that certain tract of land described in a deed recorded July 31, 1941, in
Book 359,' Page 2B5 of the Lane County Oregon Deed Records; thence along the South
boundary of said last described tract North 79. 41' 54" East 1083.15 feet to the
intersection of the South line of the last described tract and the East line of that
certain tract of land conveyed to R. H. Pierce and Elizabeth C. pierce and recorded in
Book 238, Page 464 of the Lane County Oregon Deed Records; thence along the East line
of said last described tract South 00' 02' DO" East 1991.28 feet to the point of
beginning, all in Lane County, Oregon.
Page 1 of2
276 N.W. Hickory Street. P.O. Box 725 · Albany, OR 97321 · (541) 928-2583 · Pax; (541) 967-3458
.
Ie
.
K & D ENGINEERING,. Inc.
Engilleers · Planners · Surveyors
Parcel 2
Beginning at a point in the center of County Road No. 753, 3470.24 feet South and
1319.9 feet East of the Northwest corner of the Felix Scott Donation land Claim No.
82, in Township 17 south, Range 2 west of the,willamette Meridian, and being 066 feet
Soutn ,of the Southeast corner of tract of land conveyed by The Travelers Insurance
Company to R. D. Kercher by deed recorded in Book 109, Page 260, Lane County oregon
Deed Records; thence West 1310 feet to a point 15: links East of the West line of the
Felix Scott Donation Land Claim No. 82, Notificatlon.No. 3255, in 'I'ownship 17 South,
Range 2 West of the willamette Meridian, and running thence south parallel with and 15
links diatant from said West line.of said Donation Land Claim; a distance of.2304.76
feet to a point 15 linkS Eas~ of the Southwest corner of said Donatipn Land Claim,
,thence East followlng along the center line of County Road No. 278 a distance of 1310
feet to a point in the center of said County Road No. 278 ,due South of the place of
beginning; thence North following the center line of said County Road No. 753 to the
point of begirining, all in Lane County, Oregon; ,
EXCEFrthe right of way of the Eugene-Wendling Branch of the southern Pacific
Railroad; .
ALSO EXCEPT that portion described in deed to The city of Eugene, recorded in .
Book 359, Page 285, Lane County Oregon Deed Records;
ALSO EXCEPT beginning a.t a point which is 1589.47 feet South and 1327. JJ feet
East of the southwest corner of Section 19, Township 17 South, Range 2 West,
Willamette Meridian, Lane County, Oregon, said point also being opposite and
20 feet Easterly from Station 39+59.43 I:'.O.S.T., said Station being in the
center line of the old route of County Road No. 142-5 (forme~ly 6753); thence
South O' 11' West 183.?5 feet to the intersection with the'Norther1y Railroad
Right of Way line; thence south 84' 45' West 117.33 feet; thence South 79' 30'
West 48.37 feet to the intersection of said Railroad ~ight of Way line with
,the Southerly Right of Way line of the relocated said County Road No. 742.';5;
thence along the arc of a 316.48 foot radius curve left (the chord of which
.bears North J~' 03' 35' East 261.83 feet) a distance of 269.94 feet to the
place of beginning, in Lane County, OregoD;
)lJ"SO EXCEPT that portion described in deed to Lane County recorded October 19,
1955, Reception No. 68852, [,ane county Oregon Deed Records;
ALSO EXCEPT that portion described in deed to Lane County recorded January 20,
1906, Reception No. 860221'7, Lane County Official Records,
ALSO EXCEPT that portion described in that Deed 1:0 Willamalane Park and
Recreation District recorded December 4, 1992, Reception No. 9266749, and
Correction Deed recorded February 9, 1993, Reception No. 9308469, Lane County
Official'Recordsj
ALSO EXCEPT th~t portion described in Exhibit A of that Deed to the City of
Springfield, recorded September 22, 1993, Reception No. 9360016, Lane County
Official Records.
ALSO EXCEPT Marcola Road Industrial Par-X, aD platted and recorded in File 75,
Slides 697, 896 and 899, ,Lane County pl~t Records, Lane County, . Oregon.
Page 2 of2
276 N.W. Hickory Street. P.O. Box 725. Alb,InY, OR 97321' (541) 928-2583' Fax: (541) 967-3458
, . 9-7
IEXH!lBll C
.
0
"
~
:'1l.
~
;oi:
I
I'
II
i'
I
'ST j/
0
3 I'
1l :1
~
..~ Ilii
~
.
.
LeQend
_ High Density Residential
_ Medium Density Residential
Low Density Residential
_ Mixed Use Residential
Zoning District Boundaries
_ Community Commercial
IIIIIIII Major Retail Commercial
_ Mixed Use Commercial
_ Nieghborhood Commercial
_ Light Medium Industrial
~ Campus Industrial
_ Heavy Industrial
_ Public Land & Open Space
Miscellaneous
Boundaries
f....'": Springfield
......1 City Limits
Existing
Parcels
r--I Subject
~Site
.
Job # 0609 The Villages at Marcola Meadows .
Date: 02/28/07 0 300 600 1,200
Drawn: AN 1"""1-......_ ,
Checked: RS Proposed Zoning
Revised: Scale: 1" = 600' Feet SATRE
ASSOCIATES
m
X
I
OJ
=i
())