HomeMy WebLinkAboutPacket, Planning Commission PLANNER 3/27/2007
SPRINGFIELD CITY HALL . JESSE MAINE ROOM' 225 FIFTH STREET' 541 726-3753
Tuesday March 27, 2007 5:30 pm
WORK SESSION
Tonight's Work Session involves a discussion ofthe following items:
1.
APPLICATION:
APPLICANT(s) NAME:
CASE NUMBER
PROJECT SITE:
Metro Plan Amendment, Spnngfield Zomng Map Amendment
Satre ASSOCiates, Applicant - Representmg SC Spnngfield, LLC
LRP2006-00027, ZON2006-00054
North of Marcola Road, west of31" Street, east of Mohawk
Marketplace and South of the EWEB bike path
PROJECT PROPOSAL.
The applicant IS proposmg to amend the Metro Plan dIagram from
Campus Industrial (CI) to Commerclal/Nodal Development Area
(NDA), Commumty CommercIal (CC) and MedIUm DenSity
Resldenllal (MDR)/NDA and to amend the Spnngfield Zonmg Map
from CI to CC, Mixed Use Commercial (MUC) and MDR
PLANNER:
Gary Karp, Planner III
2.
ADJOURN
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PLANNING COMMISSIONERS
Frank Cross, ChaIT
Bill Carpenter, Vice ChaIT
Steve Moe
Lee Beyer
Gayle Decker
DaVid Cole
Johnny KIrschenmann
NOTE' Work SessIOns are IDtended for the Planmng CommissIOn and Staff to dISCUSS speCific Issues that may
or may not appear on the Regular Agenda. There IS no formal opportumty for citizen partIcipatIon dunng
Work SessIOns.
The meetmg locatron IS wheelchazr-acce:Jslbre For the hearmg-impalred, an mterpreter can be prOVided with 48 hours notice prlOr to the
meetzng For meetmgs In the Councd Meeting Room a "Personal PA Receiver for the hearmg-impazred IS avaz/able To arrange for these
services phone 726-2700
Blones
Page 1
3/27/2007
SPRINGFIELD CITY HALL * CITY COUNCIL CHAMBERS * 225 FIFTH STREET * 541726-3753
Tuesday March 27, 2007 700 pm
REGULAR SESSION
1. PLEDGE OF ALLEGIANCE-
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2. ~PORT OF COUNCIL ACTION -
3. BUSINESS FROM THE AUDIENCE -
4. LEGISLATIVE PUBLIC HEARING-
Subject,
LRP2006-00027 Metro Plan Amendment,
ZON2006-00054 Spnngfield Zomng Map Amendment
Proposal
The apphcant IS proposmg to amend the Metro Plan dIagram from Campus
Industnal (CI) to Commerclal/Nodal Development Area (NDA), Commumty
CommerCial (CC) and MedIUm DensIty ReSidential (MDR)/NDA and to
amend the Spnngfield Zonmg Map from CI to CC, MIXed Use CommerCial
(MUC) and MDR
LocatIon
North of Marcola Road, west of 31" Street, east of Mohawk Marketplace and
South of the EWES bike path
Apphcant:
Satre ASSOCiates, Apphcant - Representmg SC Spnngfield, LLC
Staff
Gary Karp, Planner ill
CONDUCT OF LEGISLATIVE PUBLIC HEARING BEFORE THE PLANNING COMMISSION
. Commencement of the heanng
. Staff report
. Testimony of those m support
. TestllDony of those m oppOSItIOn
. TestllDony of those neutral
. Questions from the COlrumsslon
. Summation by Staff
. Close of publIc testimony
. DISCUSSIOn of polIcy Issues and comphance WIth adopted plans (possible questions to staff or
publIc)
. Mohon to recommend approval, approval With modificatIOn or not to adopt the proposal based on
staff report and/or oral/wntten testllDony and dlrectmg of Charr to SIgn RecommendatIOn to the
City Council
The meetmg locatwn lS whee/chaIr-accessIble For the hearmg-Impmred, an mterpreter can be provzded wrth 48 hours notice pnor to
the meetIng For meettngs m the Counczl Meeting Room. a "Personal PA Recerver" for the hearmg-mrparred IS avazlable To arrange
for these servrces, phone 726-2700
PC Agenda - Brenda Jones
Page 1 .
3/27/2007
5. BUSINESS FROM THE DEVELOPMENT SERVICES DIRECTOR
6. BUSINESS FROM THE COMMISSION
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"
7 ADJOURN REGULAR
PLANNING COMMISSIONERS
Frank Cross, Charr
Bill Carpenter, V Ice Charr
Steve Moe
Lee Beyer
Gayle Decker
David Cole
Johnny Kirschenmann
The meeting locanon IS wheelchaIr-accessIble For the hearmg-Imparred, an mterpreter can be provIded WIth 48 hours nonce pnor to
the meehng For meetmgs In the CounCIl Meeting Room, a "Personal P A Recerver' for the hearmg-Impazred IS avadable To arrange
for these services phone 726-2700
PC Agenda - Brenda Jones
Page 2
3/27/2007
..
,
MEMORANDUM CITY OF SPRINGFIELD
DATE OF WORK SESSION/PUBLIC HEARING March 27, 2007
TO
Springfield Plannlrlg Commission
PLANNING COMMISSION
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Metro Plarl Diagram Amendment - Case Number LRP 2006-00027 1 MAR 2 7 01 JJ
Springfield ZOning Map Amendment - Case Number ZON 2006-00054
Satre Associates, Applicant - Representing SC Springfield, LLC ,By
q-x
FROM
Gary M Karp, Planner III
SUBJECT
ISSUE
Conduct a work session and a public hearing on the proposed Metro Plan diagram and Spnngfleld ZOning Map
amendments and deCide whether to advise the City Council to approve, approve With conditions or deny these
applications
DISCUSSION
The subject site, formerly known as the "Pierce" property IS located north of Marcola Road, west of 31" Street,
east of Mohawk Marketplace Shopping Center and south of the EWEB bike path The subject site IS 100 3
acres In size The current Metro Plan deSignations and zoning are Campus Industnal, Medium DenSity
ReSidential and Community Commercial The applicant requests approval of a Type II Metro Plan diagram
amendment to change the Campus Industrial deSignated portion of the subject site (currently 56 acres) to
Commercial/Nodal Development Area, Community Commercial and Medium DenSity ResldentlallNodal
Develo,)ment Area, and amendment of the Spnngfield ZOning Map from Campus Industnal to Community
Commercial, Mixed Use Commercial and Medium DenSity ReSidential The applicant's Intent IS to obtain the
proper Metro Plan deSignations and zOning to allow the construction of a phased mixed-use reSidential and
commercial development With nodal attnbutes called the Villages at Marcola Meadows These applications are
the first step In the process to obtain development review approval The next steps are Master Plan approval
and then, indiVidual Site Plan and SubdiVIsion approval The publiC Will be noticed during each review process
These applications use Similar cntena of approval and have been combined Into one staff report for ease of
review Both applications are Interrelated the proposed Metro Plan diagram amendments must be approved In
order for the Zoning Map amendments to be approved because the plan deSignation and zOning must be
consistent In making their deCISions, the Planning Commission and the City Council should conSider If the City
Will be better served by converting Campus Industrial land to Commercial and Multi-family ReSidential, If
Spnngfield's cllizens, especially the neighbors, can be assured that a "quality" development Will be constructed
over time, and rf the removal of the Campus Industnal deSignation can be absorbed or should be offset by a
commensurate addition of Campus Industrial deSignation elsewhere In the City as an element of the upcoming
commercial and Industnalland supply demand analYSIS
RECOMMENDATION
Staff recommends approval of the proposed Metro Plan diagram Spnngfield Zoning Map amendments, as
conditioned, based on the attached findings
ACTION REQUESTED
AdVise the City Council, by motion and signature of the attached order and recommendation by the Planning
Commission Chairperson, to approve these applications, as conditioned, at their public heanng on April 16,
2007
ATTACHMENTS
Attachment 1 Staff Report, Findings and Order
Attachment 2 Maps Submitted by the Applicant
Attachment 3 Legal Descnptlon for the ZOning Map Amendment
Attachment 4 The Preliminary Plan illustration (a rendenng of the proposed Master Plan)
Attachment 5 ODOT Correspondence
Attachment 6 DLCD Correspondence
Attachment 7 TransPlan Proposed Nodal Development Area Map
ATTACHMENT 1
STAFF REPORT, FINDINGS AND ORDER
CITY OF SPRINGFIELD, DEVELOPMENT SERVICES DEPARTMENT
Applicant
Satre Associates PC, Applicant, representing 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
1003 acres (Assessor's Map 17-02-30-00, Tax Lot 01800 and 17-03-25-
1~, Tax Lot 02300)
1 The Metro Plan Diagram Amendment proposes to change the
Campus Industnal portion of the subject site to
Commercial/Nodal Development Area, Community Commercial
and Medium DenSity Residential/Nodal Development Area The
net effect on deSignated areas Will be as shown below
EXisting and Proposed Plan DeSignations
Acres
EXIstIng Proposed
357 547
86 196
00 26
56 0 0 0
1003 1003
o 0 80 7
Plan DeSignatIOn
Medium DenSity Resldent,al IND
Commercial
Commerclal/ND
Campus Industrral
Total
IND Nodal Development Area Overlay
%Change,
53%
128%
nfa
-100%
Spnngfield ZOning Map Amendment Case Number ZON 2006-
00054 proposes to change the zOning from Campus Industnal to
Industnal 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 Dlstnct
Medium DenSity Residential
Community Commercial
Mixed-Use CommercIal
Campus Industnal
Acres
Ex/sting Proposed
357 547
86 196
00 260
56 0 0 0
Total 1003 1003
,
ATTACHMENT
1-1
%Change,
53%
128%
nfa
-100%
Case Numbers
LRP 2006-00027
ZON 2006-00054
Procedure Type
Type IV - Metro Plan
diagram amendment
QuasI-JudicIal zone
change raised to a Type
IV procedure
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1 I EXECUTIVE SUMMARY
The applicant IS proposing to amend the Metro Plan diagram from Campus Industrial (Cll to
Commercial/Nodal Development Area (NDA), Community Commercial (CC) and Medium Density
Residential (MDR)/NDA, and to amend the Spnngfield ZOning Map from CI to CC, Mixed Use Commercial
(MUC) and MDR Attachment 2 Includes diagrams showing the current and proposed Metro Plan
deslgnallons 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 applications, 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 these 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 pedestnan enVIronments and encDurage transit
use, walking and bicycling, a tr.anslt stop which IS within walking distance (generally Y. mile) of anywhere
In the node, mixed uses so that services are available within walking distance, public spaces, such as
parks, public and pnvate open space, and public facilities, that can be reached (,,,thoul driVing, and a mix
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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 development of the site The
proximity of the Kingsford Charcoal plant and potential Vibration from the nearby rail spur has
discouraged 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 Goa112, "Transportation" are
-essential and therefore, are speCifically discussed In thiS executive summary
Comollance With State-Wide Plannlno Goal 9. "Economic Develooment"_
The Home Depot Metro Plan diagram amendment/zone 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, arid the fact that the CI deSignation 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 Plartr =1
amendments that would change development ready lands (sites defined as short-tenn m (~
metropolitan Industrial Lands SpeCial Study, 1991) to non-mdustrlal deSignatIOns ..
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3) The then recently adopted Springfield CommerCial Lands Study conclUSions were used as a =
substantial Justrficatlon for the proposal The fact that there was a shortage of vacant, developab~
commercial land In Springfield was not at question However, the proposal to Increase thiS sup~,~
regardless of other relevant factors, was not suffiCient reason to approve the proposal
~
The Issues Cited above are stili applicable and have been addressed by the applicant and staffs find ~I[!P" ==S
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
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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,
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~ MAR 2 7 lJ
Metro Plan policies and adopted land Inventones that Campus Industnalland should be c'.'B~rt"rI tn
commercial and resldenlial 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 Industnalland
surveys
Comollance With State-wide Plannlnc Goal 12. "TransDortatlon".
The applicant submitted Information requesting a "tnp cap" which can be Implemented via a "Tnp
MOnltonng 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 honzon The revised TransPlan adopted by Spnngfield, 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 (76 In Rlverbend, 8A In
Glenwood, 86 In Downtown Springfield, 9A In Mohawk, and 9H and 9J In Natron) Last year, a
prevIous Metro Plan dlagram/Zomng Map amendment application Inlliated a portion of Proposed
Nodal Development Area 9C at 30'h 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 Spnngfield's
"offiCial" Nodal Development Areas
2) The trip cap IS an acceptable traffic capacity limitation tool allowed In the Transportation Planning
Rule The tnp cap establishes a "worst case" scenario for tnps generated by the current zoning for the
enl1re Site, In thiS case CI, MDR and CC Tnps generated by future MUC, MDR and CC uses cannot
exceed the established tnp cap The response to the Goal 12 Crltenon was reviewed and accepted,
as conditioned, by Gary McKenney, Spnngfield Transportation Planning Engineer and Ed Moore from
the Oregon Department of Transportation's Springfield office (see Attachment 5)
III STAFF/APPLICANT HISTORY
Dunng 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
deslgnlplannlng firm In Portland which deSigned Hlllsboro's Orenco Station development) for a peer
review oUhe application, whIch occurred In July, 2006 Crandall Arambula listed 6 suggesl10ns 1)
Relocate and redeSign Main Street Retail, 2) Reconfigure the home Improvement center Site, 3) Include a
park as a focus and active recreal10n amenity for new resldenl1al development, 4) Include an off-street
pedestnan 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 pedestnan friendly,
and 6) The residential bUildings need a tranSition between the public and pnvate realm All but one of
Crandall Arambula's suggestions (the reonentatlon 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
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were determined to be Incomplete and staff met with Satre Associates on October 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 Improvement centers 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 OLCD representative Marguerite
Nabeta and the applicant to review OLCO 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 pnor to the publiC heanng
\111 PROPERTY DESCRIPTIONILAND USE HISTORY
Prooertv Descllotlon and EXlstma Conditions.
The subject site IS located north of Marcola Road, west of 31't Street, east Mohawk Marketplace
Shopping Center and south of the EWES bike path and IS 100 3 acres in size The applicant has
submitted the followmg mformatlon
"Sublect Site
The subject site has been used for a vanety of agncultural uses It IS currently vacant, WIth the exceptIon
of a small mdustnal bUlldmg to the south of the subject site The Spnngfield City Umlts abuts the subject
site on small portIons on the west and northeast Tax Lot 2300 IS partIally developed with a vacant
mdustnal bUlldmg Tax Lot 2300 was platted m 1994 as Parcel 3 of land partItion plat 94-P0491 A
property Ime adjustment was recorded WIth Lane County m 1997 affectmg the common boundary
between Parcels 2 and 3 of Land PartitIon Plat 94-P0491 m so domg completmg the current configuratIOn
of the subject site (City of Spnngfield file# 97-02-029) Tax Lot 1800 IS vacant A storm dramage facility
runs through the center of the subject site runnmg east to west The storm dramage 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 adJacent uses IS as follows.
North The property to the north of the subject site IS separated by an EWEB utility comdor that alse r -
serves as a multI-use path North of the EWEB comdor IS property owned by Wlllamalane Park and ~
Recreation D/stnct (Tax Lots 1500 and 2300), Bnggs Middle School and Yolanda Elementary (Tax 1 ~
2200 and 3002) and smgle family reSidential properties The properties to the Immediate north are < fr?ed
MedIUm-Density ReSidential With PublIC Land and Open Space zomng on the School and parl of thE =
Wlllamalane and EWEB properties ~
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West The property to the west IS zoned and developed With low-denSity smgle-famlly residential
dwellmgs
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Southwest The property to the' southwest IS zoned Commumty CommerCial and IS developed With a
vanety of retail commercial uses mcludmg 8 grocery store and a bank
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South The property to the south IS zoned and developed with low-density smgle-famlly residential
dwellmgs
Southeast To the southeast are properties that are zoned for Light-MedIUm Indus/nal (across North 28th
Street) and Heavy Industnal (across Marcola Road) Several of these properties are currently developed
with mdustnal uses
East To the east (across North 28'h Street) are properties zoned and developed with low-density smgle-
family residential dwellmgs "
Land Use Hlstorv
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 beanng on the proposed applications
The 'Pierce" property onglnally stretched from 19th Street to 31" Street and beyond to the base of Moe
Mountain, and from Marcola Road to Bnggs 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, 594 acres at Special Light Industnal (now Campus Industnal), and
25 acres of light-Medium Industnal (located east of the subject site) There was 175 acres of Low
DenSity Resldenlial 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 EWES Slke Path With access
to a public street and the bike path 1
b) The crealiDn of a new street to smooth the transllion between 28th and 31't Streets 2
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 Industnal and the Medium
DenSity Residential zOning 3
2
3
The last Campus Industnal Conceptual Development Plan (98-02-047) approved In 1999 stated that 8
acres were dedicated for park use In 1993 ThiS park land, which remains undeveloped, IS listed In
Wlllamalane'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 nght-of-way and the 28th 131't 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
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 Commun)ty Commercial zoning along Marcola Road, taken from the Medium
DenSity Residential zOning;
1-7
b) Changed the Low Dens]ty Res]dent]al/Med]um Dens]ty Res]dent]al zoning shown In Allee Park North
to Low Dens]ty Res]dent]al,
c) Showed the future park zoned ent]rely PLO, and
d) D]d 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 Th]s City In]t]ated Metro Plan Amendment and appl]cant ]nlt]ated Zone Changes appl]cat]on
el]mlnated add]t]onal zOning and plan diagram Incons]stenc]es The zone changes were from
a) Community Commerc]al to Med]um Dens]ty Res]dent]al for 1 28 acres (extending the res]dent]al
zoning to the south) so that the northern boundary of the commerc]al zOning would be located w]thln
a 20 foot-wide sanitary sewer easement, and
b) Campus Industrial to Community Commerc]al for 1 28 acres (extend]ng the commerc]al zoning east)
to keep the commerc]al 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-Med]um Industrial for 11 5 acres
located east of the 28'"131" Street connector and north of Marcola Road Ordinance 5851 was approved
by the City Counc]1 on April 7, 1997 (Note these 11 5 acres ]S outside of the boundary of the subject
property)
97-02-029 Th]s Property Line Adjustment moved the common property I]ne of Parcels 2 and 3 of Partition
Plat 94-P0491 approx]mately 142 feet to the west to allow the ex]st]n9 drainage ditch to be ent]rely on
Parcel 3 The survey was recorded at Lane County on Apnl 3, 1997
The current acreages are as follows 1) Community Commerc]al 8 8 acres, 2) Campus Industrial 56
acres, and 3) Med]um Dens]ty Res]dent]al 35 5 acres
00-12-254 Metro Plan Amendment appl]cat]on Home Depot requested a Metro Plan diagram
amendment from Campus Industrial to Community Commerc]al for 779 acres On June 18, 2001 the City
Counc]1 voted 4-1 with one absent to deny the request The approval of concurrent zone change and Site
Plan Rev]ew applicat]ons was dependent upon the adoptJon of the Metro Plan diagram amendment
Since the City Counc]1 denied this appl]cat]on, those applicat]ons were denied also
llV APPLICATION TEAM
Owner/Appl]cant
SC Springfield, LLC
5440 LOUIe Lane, SUite 102
Reno, Nevada 89511
Attn Jeff Belle
Project Developer
The Marlin Company
PO Box 1482
Albany, Ore90n 97321
Attn Bob Martin
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m MAR 2 7 i
The property owner has put together the follow]ng development team
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PlannerlLandscape 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
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Architect
Waterbury Shugar Architecture LLC
225 West 5th Avenue
Eugene, Oregon 97401
Attn Richard Shugar, AlA
By
CIvil EnglneerlSurveyor
K & 0 Engmeenng, Inc
PO Box 725
Albany, Oregon 97321
Attn Dan Watson, PE
Transportation Engmeer
Access Englneenng, LLC
134 East 13th Avenue, SUite 2
Eugene, Oregon 97401
Attn Mike Welshar, PE
~I V PROPOSED DEVELOPMENT
The applicant states that "This PAPA, submitted concurrently With the zone change application, IS m
preparation for appropnate land use permit applications to construct a mixed-use reSidential, and
commercial development as descnbed herem The appropnate land use permit applications mclude [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 Prelimmary Plan illustration are matenal to the current application To
provide specific mformatlon about the mtended mixed-use development and ItS relevance to the current
application, a Prellmmary Plan illustration has been submitted as [AttachmenI4] and as descnbed below
The Villages at Marcola Meadows IS a proposed mixed-use development compnsed of residential,
office and retail Villages Referencmg the dramatic wooded backdrop of the Coburg and Marcola hills to
the north, and the large plane of valley floor meadow on Site, Marcola Meadows has been conceived to
blend m With thiS overall settmg while creatmg a bndge and supportive transition rn the scale and mtenslty
of larger commercial uses to the south With qUIet residential neighborhoods to the north Wlthm Marcola
Meadows a sUIte of eight Villages Will eXist Four residential Villages compnsed of srngle family homes,
apartment homes, townhomes and an assisted livmg facMy With semor cottages Will occupy the northern
extent of the Site, buffenng eXlstrng 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, mam street retail Will face 28th Street and Marcola Road Each of the
Villages IS envIsioned to be umque, yet part of the whole The overall Meadows theme Will appear
throughout, With the use of meandenng waterways, native plans and generous open space Wlthrn 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 excitrng place to shop,
With speCialty retail shops and umque drnmg venues Stores will have welcomrng front doors, large
wmdows and high ceilmgs, all With natural matenals 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 commumty Will be conn~cted with all-weather multi-use off street pathways It Will be convement,
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 commumtles, lightmg, bndges, seatmg, and over/ooks to support
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walkmg and re/axmg It will be a healthy place, with ample use of oxygen-generatmg trees to cleanse the
air, catch the wmd and cool the temperature It will be an environmental place, ut1llzmg a network of
bloswafes, shallow seasonat'ponds, and a meandenng dramageway to capture and cleanse storm water
In all, The Vlilages at Marcola Meadows will not only be a great adddlon to the commumty but a wise use
of land and smart approach to design "
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I VI TYPE OF METRO PLAN 'AMENDMENTrrHE ZONING MAP AMENDMENT AS A TYPE IV REVIEW J
1) This Metro Plan diagram amendment application Involves the site-specific amendment of the Metro
Plan diagram from Campus Industnal to Campus Industnal portion of the subject site (currently 56
acres) to Commercial/Nodal Development Area, Community Commercial and Medium Density
Residential/Nodal Development Area ThiS Metro Plan amendment IS a Type 11 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 11 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 Invotve 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 Artlcte 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 11 Metro
Plan diagram amendment application
Type of Metro Plan Amendment ConclUSion and Fmdmg
Spnngfield 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 Spnngfield City CounCil However, referrals
have been sent to both the Eugene and Lane County Planning Directors as speCified In SDC Section
7050
I VII PROCEDURAL REQUIREM!?:1-ITS ( - ')
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Procedural requirements for Metro Plan diagram amendments are deSCrIbed In SDC Article 7, Spnn! ~
ZOning Map amendments are descnbed SDC Article 12, and notice reqUIrements are descnbed In S[ ,F
Article 14 = t-
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SDC Article 7 Indicates that the City Councilor a citizen can Initiate Metro Plan diagram amendment: @ ~
These amendments of are reViewed under a "Type IV" procedure and require publiC heanngs before.~ :::;:
Planning CommiSSion and the 'CIty CounCil Type IV procedures are detailed In SDC Section 3 100
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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 heanngs before the Planning
Commission and the City Council Type IV procedures are detailed In SDC Seclion 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 localion of
the heanng 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 cntena of approval Where the applicant's
submittal responds to a similar cntenon 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 ReoUlrement Conclusion and Flndlnos_
Satre ASSOCiates, representing SC Springfield, LLC has Inlliated 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
heanng 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 refiectlng 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
Nolice of the public hearings concerning 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
heanng before the Spnngfield Planning CommISSion on March 27, 2007 and the City Council on Apnl16,
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 nolice
requirements established by DLCD for legislative applications
I VIII DECISIONJ~.RITERIA !-ND ~1~o.!NGS
The Metro Plan diagram and Zoning Map amendments have been combined Into one staff report for ease
-__-=.of review Both applicalions have cntena reqUlnng 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 appropnate Crltena that are different Will be addressed separately, the end result
Will be that all applicable cntena Will have been addressed and findings prepared
L IX METRO PLAN AMENDN1ENT.J;_~~TERA AND FINDINGS
Article 7 deSCribes the crltena to be used In approving a Type II Metro Plan amendment SDC Section
7070(3) states that "The follOWing cntena 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
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CommiSSion, and (b) Adoption of the amendment must not make the Metro Plan Internally
inconsistent"
I SDC Section 7 070(3} "(a) The amendment must be consistent With the relevant statewide planning I
,qoals adopted by the Land Conservation and Development Commission, and"
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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"
Aoolicant's SubmIttal
The Clly of Spnngfield has an acknowledged citizen Involvement program and an acknowledged process
expressed in the Springfield Development Code for secunng 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 III, pp III-K-1 to III-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 heanng processes
provIded for Type IV application procedures as stIpulated In SDC 3100(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 heanngs at the
level of the planmng commiSSIon and cIty council, notIficatIon of deCISIOn and notification of the nght of
appeal, provIdes CitIzens the opportumty to revIew and make recommendations In wntten 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 opportumty for CItizen
Involvement consistent With Goal 1
For the reasons cited, including the Metro Plan's and the Clly of Spnngfield's acknowledged programs for
clllzen Involvement, the amendment IS consistent WIth Goal 1 "
Staffs Resoonse_
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 Imtlal publiC hearing before the Planning Commission and a
legislative public hearing before the City CounCil OLCO and neighborhood notice of these hearings,
including local JUrlsdlclion 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 not df>-,~ 1
thiS meeting to all property owners Within 300 feet of the subject site (the same notice area as mane ~
to the City by the State), IndiViduals on staff's Interested persons liSt, and to affected public agencle<-8
ApprOXimately 40 people attended
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These applications comply Wlt~ Goal 1 because they are being reViewed under an acknowledged CI I~
Involvement program and public notice procedures were compiled With
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GOAL 2 LAND USE PLANNING
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W MAR 27m
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"To establish a land use plannmg process and policy framework as a basIs for all decIsion and
actions related to use of land and to assure an adequate factual base for such decIsions and
actIons "
Aoohcant'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 umts In order to comply w1Ih
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 1Is findings to the
legItImate concerns of affected governmental Units There are no Goal 2 Exceptions reqUired
The Eugene/Spnngfield Metro Area General Plan (Metro Plan), the Spnngfield Code, and the State-wide
Planning Goals and applIcable state statutes and adminIstrative regulations, provide polIcies and cntena
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 "
l)tafFs Resoonse
Staff concurs With the applicant's submittal On August 23, 1982, DLCO acknowledged that the Metro
Plan and the all Implementing measures were found to be In compliance With the State-wide Planning
Goals pursuant to ORS 197 245 and 197250 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
In 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 applicallons has been sent 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 pnvate Improvements deSigned to be pedestnan and transit onented " 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)
"
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Staff Fmdma.
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 Junsdlctlon's zonmg
GOAL 3 AGRICULTURAL LAND
"Ta preserve and mamtam agncultural lands"
Goal 3 defines "agncuttural lands" by stating, In part, that they" do not mclude tand wlthm
acknowledged urban growth boundanes or land wlthm acknowledged exceptions to Goals 3 or 4 "
Aoohcant's Submittal
"This goal applies to lands that are designated Agncultural This amendment IS for property located wlthm
the city limits of Spnngfield and does not affect land designated for agncultural use Therefore, Goal 3 IS
not applicable or relevant to the amendment"
Staff's Resoonse
Staff concurs with the applicant's submittal The subject site IS located wlthm the city limits on land
planned and zoned for urban use for over 30 years The City does not have any agncultural zOning
dlstncts, either wlthm ItS city limits or wlthm the urban growth boundary
Staff Fmdma
Goal 3 does not apply to these applications because the subject site IS Within Spnngfield's City limits and
the City does not have any agnculturallands
GOAL 4 FOREST LANDS
"To conserve forest lands by mamtammg the forest land base and to protect the state's forest
economy by makmg possible economically effiCient forest practIces that assure the contmuous
growmg and harvestmg of forest tree species as the leadmg use on forest land consistent WIth
sound management of SOil, air, water, and fish and Wildlife resources and to proVide for
recreational opportunities and agnculture "
Aoohcant's SubmIttal
"ThiS amendment IS for property located wlthm the city limits of Spnngfield and does not affect land
deSignated for forest use Therefore, Goal 4 IS not applicable or relevant to the amendment"
Staff's Resoonse
Staff concurs With the applicant's submittal The subject site IS located wlthm an acknowledged urban
growth boundary Goal 4 does not apply Within urban growth boundanes
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Goal 4 does not apply to these applications because the subject site IS Within Spnngfield's City limit, ~
the City does not have any forest lands =
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Staff Fmdmq,
"To protect natural resourceS and conserve scenic and hlstonc areas and open spaces "
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GOAL 5 NATURAL RESOURCES, SCENIC AND HISTORIC AREAS, AND OPEN SPACES
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Aoohcant's SubmIttal
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W MAR 2 7
"Pursuant of Goal 5, the City of Spnngfield has adopted the followmg documents
. Eugene-Spnngfield Metropolitan Area General Plan, revised 2004
. City of Spnngfield, Local and National Wetlands Inventory Map, December 2005
. City of Spnngfield Natural Resource Study, adopted, November 2005
Oregon AdmmlstratlVe Rule 660-023-0250 establishes the applicability of Goal 5 rules to Post
Acknowledgement Plan Amendments (PAPA), and specifies certam procedures and requirements for
local governments to follow m the adoption or amendment of all plan or land use regulations pertammg to
Goal 5 resources The rule states
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"(3) Local governments are not reqUired to apply Goal 5 m 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 m 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 Itst, or
(c) The PAPA amends an acknowledged UGB and factual mfonnatlon IS submitted demonstratmg that a
resource site, or the Impact areas of such a site, IS mcluded m the alnended UGB area" -
The followmg discussion will demonstrate that the proposed PAPA does not raise any Issues that would
reqUire the City of Spnngfield to apply Goal 5
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Firstly addressmg OAR 660-023-250(a) The changes sought by this appltcatlon do not create or amend a
resource list or any portion of an acknowledged plan or land use regulation adopted m order to protect a
significant Goal 5 resource on the subject site
Secondly addressmg OAR 660-023-250(b) The changes sought by thiS appltcatlon 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 vanous studies, mventones, 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 OfthIS site as a Goal 5 resource
There IS dramage dItch on the site that was mventoned and Itsted (M32) by the City of Spnngfield Natural
Resource Study It was clasSified as a Low Qualtty Wetland and did not meet the slgnrficance cntena of
the Oregon Freshwater Wetland Assessment Methodology The closest Goal 5 resource Identified by the
City of Sprmgfield Natural Resource Study IS the Irvmg Slough located approximately 550 feet to the east
It IS Itsted as both a High Quality Rlpanan Resource Site (S20 and S21) and a Moderate Qualtty 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 addressmg OAR 660-023-250(c) The changes sought by thiS appltcatlOn do not amend the
acknowledged City of Sprmgfield Urban Growth Boundary Therefore, With regard to thiS cntenon, 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 consldenng a Post Acknowledgment Plan Amendment If the amendment affects a
Goal 5 resource For the purposes of that rule, the section Itsts three circumstances (OAR 660-023-
0250(3)(a), (b), and (c) quote~-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
H5
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 conslder/ng the proposal The CIty of Spnngfield can find that
the actIon requested by thIs applicatIon IS consistent WIth State-wIde Planmng Goal 5 "
Staff s Resoonse
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 hlstonc 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,
Property 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 Fmdma
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 Aooroval #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 12040 gives the City authOrity to add conditions" as may be reasonabty
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
Condrtlon of Aooroval #2
Submittal of documentation from the Department of State Lands andlor 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 11 ~ @ ~ G If]
GOAL 6 AIR, WATER AND LAND RESOURCES QUALITY OAR 660-015-O000(6} I~
"To maintain and Improve the qual1ty of the air, water and land resources of the st:l)ll" MAR 2 7
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Aoohcant's Submrttal
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"Nothmg m the proposal or the character of the site or potential uses mdlcates a future development that
would compromise air, water and land resources Future development of the stle Will be m conformance
WIth local, state and federal law mcludmg aspects of the Sprmgfield Code As mdlcated m findmgs
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regardmg Goal 11, mcorporated herem by reference, options for accessmg or provldmg.h necessary J
urban services are available Therefore, the amendment IS consistent with Goal 6
Goal 6 reqUires all waste and process discharges from eXlstmg 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 m compliance With the
applicable state and federal environmental quality standards (Fnends of the Applegate v Josephme
County, 44 Or LUBA)
There are three federal environmental quality acts relevant to State-Wide Plannmg Goal 6 Clean Water
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Clean Air, and the Resource Conservation and Recovery Acts These acts are enforced by the
Environmental Protection Agency (EPA) to mamtam air, water, and land resource quality
The EPA delegates authOrity to Oregon Department of EnVironmental Quality (DEQ) to enforce federal
environmental statutes m the State of Oregon (I e Clean Air Act, Clean Water Act, and Resource
Conservation and Recovery Act) The DEQ admmlsters the federal statutes (acts) through the Oregon
AdmmlstratlVe 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
recyclmg, hazardous waste and hazardous matenals, nOise control, and air and water quality standards
At the local level, the Eugene-Spnngfield Metropolitan Area General Plan (Metro Plan) contams poliCies
related to Goal 6 that mamtam air, water and land resource quality m the metropolitan area and are as
follows
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C 25 Springfield, Lane County, and Eugene shall conSider downstream Impacts when plannmg for
urbamzatlon, flood control, urban storm runoff, recreation, and water quality along the Willamette and
McKenZie Rivers
C 26 Local governments shall contmue to momtor, to plan for, and to enforce applicable air and water
quality standards and shall cooperate m meetmg applicable federal, state, and local alf and water quality
standards
C 27 Local governments shall contmue to cooperate m developmg and Implementmg programs necessary
to meet air quality standards ThiS effort should mclude but not be limited to
a ReView of all major public capital expenditure projects for potential alf quality
Impacts
b Integration of air quality concems mto the comprehenSIVe land use plan
c Active partiCipation m developmg and Implementmg additional controls, as needed
Supplemental to the Metro Plan IS the Central Lane Metropolitan Plannmg Orgamzatlon Regional
Transportation Plan (RTP) ThiS plan IS the federal Regional TransportatIOn Plan for the Eugene-
Spnngffeld metropolitan area A plan as such, must comply With the federal Transportation EqUity Act for
the 21" Century (TEA 21), NatIOnal Ambient Air Quality Standards, and the State of Oregon
TransportatIOn Plannmg Rule (TPR) Additionally the RTP must demonstrate conSideration for system
preservation and effiCiency, energy conservation, and congestion relief
I The Clean Water Act estabhshes the baSIC regulatory structure for regulatmg dIscharges of pollutants m the waters
of the Umled States The Clean Waler Act IS unplemented through mdustry standards and requirements The Clean
Air Act regulates air emISSIOns from area, statIOnary, and mob,)e sources Tlus Act sets maxImum pollutant
standards and directs states to develop stale unplementallon plans (SIpS) apphcable to appropnate mdustnal sources
Fmally, the Resource ConservatIOn and Recovery Act controls hazardous wasle from the "cradle-la-grave", which
mcludes the generallOn, transportatIOn, treatment, storage, and dIsposal of hazardous waste ThIS act also sets forth a
framework for the management of non.hazardous wastes
1'-17
The proposed Post Acknowledgement Plan Amendment (PAPA) does not amend any of the Regional
Transportation Plan goals, obJectIVes, or policies Future land use plannmg applications (Conditional Use
Permit and Site Plan) will conf(Jrm to federal, state, and local regulations related to State-wide Plannmg
Goal 6 Further, when land use approvals are procured, at that time the applicant will obtam the relevant
air quality permits from the Lane Regional Air Protection Agency (LRAPA) Specifically, the applicant will
obtam Air Contammant Discharge Permits as needed and Indirect Source ConstructIOn Permits for the
proposed parkmg facMles
In the Eugene-Spnngfield metropolItan area, Lane County, Lane Council of Govemments (MetropolItan
Plannmg Organization), Lane Regional Air Pollutton Agency, and the City of Eugene mamtam compliance
With DEQ regulations by the followmg
. Lane County proVides reSIdents With waste management servIces through a network of disposal
sItes The County's waste reductIOn and recyclmg programs are managed to conserve resources and
prevent waste
. The Lane CouncIl of Governments proVIdes wastewater and storm water systems, ground and surface
water, dnnkmg water source assessment, watershed assessment studies and planning and protection
for the Eugene-Sprmgfield Metropolitan Area AdditIonally, the Lane Regional Air Pollution Agency
regulates regional air quality m Lane County through regulattons, programs and permits for reSidents
and busmesses
. The CIty of Spnngfield PubliC Works Department mamtams water qualIty m the city through
metropolItan sewage stormwater treatment systems that are reqUIred to operate under speCIfic
gUldelmes set forth by the DEQ The City of Spnngfield also has design standards for wastewater and
stormwater collectIon systems m the CIty of Spnngfield Public Works, Standard ConstructIon
SpecificatIOns and the Engmeenng Design Standards & Procedures The City of Spnngfield's
Development Code has three articles relevant to Goal 6 that proVIde resource protection Article 17 -
DWP Dnnkmg Water Protection Overlay Dlstnct, Article 27 - FP Floodplam Overlay Dlstnct, Article 32
- Public and Pnvate Impro,;ements
The proposed PAPA does not amend any of the Goal 6 related polICIes of the Metro Plan or the RegIonal
Transportatton Plan nor amend any regulatIOns Implementmg those poliCies As demonstrated m
responses regardmg Goal 11, mcorporated herem by reference, these urban services are available
Because the proposed PAPA does not authonze 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 mdlcated m findmgs regardmg Goal 11, mcorporated herem by reference, opttons for
accessmg or proVldmg the necessary urban services are avaIlable Therefore the proposed amendments
are consIstent With Goal 6
In addltton to the precedmg facts, the eVidence supports a reasonable expectatIOn that future
development resultmg from the proposed PAPA WIll be consistent With Goal 6 reqUIrements Therefore,
the CIty of Sprmgfield can reasonably expect that future development under the proposed PAPA Will
comply WIth applicable state and federal environmental quality standards The proposed PAPA IS
consIstent with Goal 6
Staff's ResDonse
Staff concurs With the applicant's submittal The purpose of Goal 6 IS to Improve anl~t@ ~ Bu~~ ]
of the air, water and land reso~rces of the state
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Th, "b,oct ,," " ""'''d ,'hm PO'ffi'~' Nod" "'" 7C " ,how' '" >h, '" OW Po eo, ,."'" - ~
Development Area Map In TransPlan The proposed development will Implement mlxe:~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 resldenlial
areas In the north of the subject site) and off-Site (between the eXisting nearby residential development
and eXisting industrial uses, to the east and 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 Mulli-Famlly development (apartments) and for Cluster Development (Single-
family housing) In SDC Article 16 These design standards foster pedestrian safety and Infill 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 Drinking Water Protection Overlay District standards, regardless of plan
designation or zort'~g 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 Wlllamalane 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 applicalion review
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
~taff Fmdmq
As condllioned, 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 stormwater management and protecting the City's drinking water
supply, 95 percent of which IS from groundwater
Condition of Aooroval #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 Aooroval #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 1;0 NATURAL HAZARDS
,
"To protect people and property from natural hazards"
j:-19
Aoohcant's Submittal
"Goal 7 reqUIres that development subject to damage or that could result m loss of life not be planned or
located m known areas of natural hazards and disasters without appropriate safeguards The goal also
reqUIres that plans be based on an mventory of known areas of natural disaster hazards (floods,
landslides, earthquakes, wildfires and other related hazards) The Multi-Hazard MltlgatJon Plan for the
Eugene/Springfield Metropolitan Area (Metro Hazard Plan) that was adopted by the City of Spnngfield IS a
non-regulatory plan but provides an mventory of known hazards
The Metro Hazard Plan does not Identify any known hazards wlthm the area of the subject site
AdditIOnally, the subject site IS outSide of the 100 year and 500 year flood plams (Exhibit 7) There are no
adopted or non-adopted maps that Identify the subject site to be wlthm 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 mclude
a full analysIs of hazard nsk and mitigate the risk through appropnate construction As such thiS
amendment IS m compliance with Goal 7"
Staff's Resoonse
Staff concurs with the applicant's submittal Goal 7 IS Intended to minimize the risk of hazards to human
health and the nsk of loss of human life Goal 7 also Intends to minimiZe costs assOCiated with
redeveloping after a natural disaster by restnctlng development In areas that are prone to natural
disasters and hazards Two pnmary areas of concern Involve development In the flood plain and on
steep slopes The subject site IS flat and IS not located within a floodway
Staff Flndlnq
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 recreatIOn at needs of the Citizens of the state and vis/tors and, where appropnate,
to prOVide for the sltmg of necessary recreatIOnal fac/Mles mcludmg destmatlOn resorts"
Aoohcanl's Submittal
"Regardmg recreatIOn, State-wide Plannmg Goal 8 states, 'The requirements for meetmg such needs,
now and m the future, shall be planned for by governmental agencies havmg responsibility for recreatJon
area, facilities and opportumtJes
1 In coordmatlon with pnvate enterpnse,
2 In appropnate proportions, and
3 In such quantity, quality and locations as IS consistent with the ava1labtlity of the resources to
meet such reqUIrements'
Pursuant to Goal 8 reqUIrements, the City of Spnngfield and other local JUrisdictIOns have developed the
followmg relevant plan documents
.
Eugene-Spnngfield Metropolitan Area General Plan (Metro Plan), ReVised 2004
Rivers to Ridges, Metropolitan Regional Parks and Open Space Study, ~VUI~rc: (i'l rc: n m ~ -:\
Lane County Parks Master Plan, 1980 ~ L!; \!OJ L!; U ~ L!; \ I.
Willamalane 20-year ""ark and Recreation ComprehenSive Plan, 2004 MAR 2 7 I
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The proposed Metro Plan Land Use Diagram amendment will not change the status of any rc~:;,. --
area, facility or oppot1unlty that has been mventoned and designated by the Metro Plan or any other
relevant facility plans regardmg recreatiOnal needs None of the vanous studies, mventones, and facHltles
plans have designated the subject site for parks and open space m an adopted mventory, declared It a
significant resource, or slated this pnvately owned propet1y for acqUisItion
The Wlllamalane Park and Recreation Dlstnct, responSible for parks and recreation plannmg m the City of
Spnngfield, has developed the Willamalane 20-year Parks and Recreation Comprehensive Plan The
City of Sprmgfield has adopted this plan as a refinement of the Metro Plan The plan proposes a 5 5 acre
community park on two undeveloped parcels not1h of the subject site, between Bnggs Middle School and
the EWEB utility easement (bike path), and owned by the Willamalane Parks and RecreatiOn Dlstnct
The Wlllamalane comprehensive plan refers to these parcels as 1he Pierce property, ' donated m 1993
and elsewhere Identified With adjacent parcels as the 'YolandalBnggs/Plerce School Park' The plan
observes that '1here are oppot1unltles to work With the School Dlstnct and EWEB on future Improvements
to the Pierce property as a neighborhood park and a wayside for the EWEB Bike Path' (pg A-46-7)
The WHlamalane 20-year Parks and Recreation Comprehensive Plan, 7able 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 mvestlgatlons, If they have been pursued, have
led to no further defined actiOn or pobcy Action 1 5 suggests, 'pursue oppot1unJtles to Improve the EWEB
bicycle path and develop park facHltles on adjacent land to help meet neighborhood park needs ) The
Prebmmary Plan Jl/ustratlon for the subject site mcludes several pedestnan and bicycle connections to the
EWEB path and the proposed parks to the north The subject site Itself Will mclude extensIVe pubbc open
spaces As a commentmg agency, the Willamalane Parks and Recreation Dlstnct Will have, through the
Prebmmary Plan Jl/ustratlon and site plan review processes, the opportunity to coordmate 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 northem boundary of the subject
site as an element of the area's 'Major Pubbc Parks and Open Space ' However, this bicycle path IS
outSide the boundanes of the subject site
No pat1 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 'exlstmg park
and recreation resource' No acknowledged plan declares It a Significant resource or slates this pnvately
owned property for acqUisition Therefore, the proposed PAPA IS consistent With State-wide Plannmg
Goal 8
Staff's ReSDonse
Staff generally concurs With the applicant's submittal Wlllamalane Parks and Recreation District IS the
local agency responsible for park planning wlthm Spnngfield's City limits and Urban Growth Boundary
WlIlamalane'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 wlthm
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 pnvate prOVISion of
quality parks, urban plazas, trails, Imear parks, rooftop open space, and other amemt/es m pnvate
developments, where consistent With the goals and standards of thiS Plan" (P 23)
On the Preliminary Plan illustration, the applicant shows a proposed pnvate park that Will serve the
reSidents of thiS development Off-street pedestnan walkways are also shown along the proposed water
feature that wlIl cross the subject site from east to west
1'-21
The applicant states "None of the vanous studies, Inventones, and facMles plans have designated the
subject site for parks and open space In an adopted Inventory, declared It a slgmficant resource, or slated
thIs pnvately owned property for acqUisition" [and] "No acknowledged plan declares It a slgmficant
resource or slates this pnvately owned property for acqUlslllon "
The applicant also states "The plan proposes a 5 5 acre commumty park on two undeveloped parcels
north of the subject slle, between Bnggs Middle School and the EWEB ut1l1ly easement (bike path), and
owned by the Wlllamalane Parks and Recreation Dlstnct The Willamalane comprehensIVe plan refers to
these parcels as ~he Pierce property,' donated In 1993 and elsewhere Identified With adjacent parcels as
the 'Yo/anda/BnggslPlerce School Park' The plan observes that "there are opportunllles to work With the
School Dlstnct 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 Yo/anda/Bnggs/Plerce School Park - Work With SD 19 to develop and develop a
school/park master plan for the Pierce property and adjacent Bnggs and Yolanda school grounds
that prOVides for coordinated development and optimizes outdoor recreatIOnal facilities" (P 40)
"Project 1 4 Pierce property ExpanSIOn - Investigate expansion of the park onto the vacant land to
the south" (P 40)
DUring the approval process for these applications, staff IS requesting that the applicant begin a dialogue
by diSCUSSing the proposed development With representatives from Wlllamalane and whether there 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 Wlllamalane park development occurs, reSidents Will
need to cross the EWES faCIlity to utilize the park/recreation faCIlities The EWES 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
blke/pedestrlan path As part of the Master Plan and other required land use applications, the applicant
Will be required to obtain the necessary easements from EWES to allow reSidents of the proposed
development to cross their faCIlity
These applications can be conditioned to fully comply With Goal 8
Staff Fmdmq
As conditioned, these applications comply With Goal 8 because In addition to private on-site open space,
there are nearby park faCIlities that can serve future residential development
Condition of Aooroval #5
Submittal of a Master Plan application that addresses the relattonshlp of the proposed development to
Wlllamalane's future park on the north Side of the EWES Bike Path and an explanation of any
coordination efforts With Wlllamalane concermng the timing and development of the future park
]0, ~ @ ~ 0 \'fl ~ ~I
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Condition of Aooroval #6
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Submittal of a Master Plan application that addresses coordinatIon with EWEB to determine If any
easements are required In order to cross the EWES Bike Path to access the future park
GOAL 9 ECONOMIC DEVELOPMENT
"To provide adequate opportunities throughout the state for a vanety of economic actIVities Vital
to the health, welfare, and prospenty 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
ard related Goals (10) and (12)
Aooltcant's SubmIttal
"ResDonse
Statewide Planning Goal 9 - Economy of the State, reqUires communities to mventory, plan, and zone
enough commercial and mdustnalland to support the dIversification and Improvement of the economy
Pursuant to thiS, the City of Spnngfield has adopted the followmg documents
Eugene-Sprmgfield Metropolitan Area General Plan (Metro Plan), ReVIsed 2004
Spnngfield CommercIal Lands Study, February 2000
Metropolitan Industnal Lands Special Study
Metropolitan Industnal Lands Inventory Report, July 19S3
Metropolitan Industnal Lands PoliCY Report, July 1993
Also relevant to thiS diSCUSSion are studies regardmg other stateWide plannmg goals These other
documents mclude
Spnngfield Naturel Resource Study Report, October 2005
Eugene-Spnngfield ReSidential Lands Study, 1999
The Metropolitan Industnal Lands Special Study (MILSS) commenced m 1989 and produced two
documents, the Metropolitan Industnal Lands Inventory Report (MILlR) and the Metropolitan Industnal
Lands Policy Report (MILPR) In 1995, the Spnngfield CommercIal Lands Study (SCLS) was Initiated
The City of Spnngfield adopted the study m 2000 and the Oregon Department of Land ConselVatlon and
Development (DLCD) acknowledged the SeLS as a penodlc review task The study looked only at lands
wlthm Spnngfield's urban growth boundary and did not make changes to either the Metro Plan or the
Spnngfleld Development Code However, as an area specIfic periodiC review task, It updates the
"EconomIc Element" of the Metro Plan and mcludes fmdmgs, polIcies and ImplementatIOn strategies
regardmg 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 Fmdmgs of the Eugene-Springfield ReSidential Lands
Study were mcorporated mto the Metro Plan along with other penodlc revIew amendments m the 2004
Update The Spnngfield Natural Resource Study Report (SNRS) updated mventones of ReSidentIal,
CommercIal, and Industnal lands, and was acknowledged by the DLCD m December 2006
Oregon Admm/stratlve Rule (OAR) 660-009-000 et seq (DIVISion 9) establishes the applicabIlity of Goal 9
rules to Post Acknowledgement Plan Amendments (PAPA), and specifies certam procedures and
reqUIrements for local governments to follow m the adoptIon or amendment of all plan or land use
regulations pertammg to Goal 9 In OAR-660-009-0010(4) the rule discusses procedures relevant to thiS
application and states >
1"-23
'.
'NotwIthstanding paragraph(2).[660-009-0010(2)}, a junsdlctlon whIch changes Its plan designatIons of
lands In excess of two acres to or from commefCfal or Industnal use, pursuant to OAR 660-Dlvlslon 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 of the above, consistent WIth the reqUIrements of this divIsion'
The plan designatIOn changes anticipated by the proposed PAPA will remove 56 0 acres of Campus
Industnal desIgnation In ItS stead, the supply of land With Commercial designatIon will Increase 37 0
8{;res and the remaining 19 0 acres will receive a MedIUm Density ResidentIal designatIon AdditIonally,
26 0 acres of the CommefCIalland 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 Industnal Lands Inventory Report (MILPR) estimated that the mdustnalland supply at
the beglnnmg of the planning penod (study year) was about 3,600 acres Within the Metro UGB The
Campus Industnaf share of all vacant unconstrained mdustnalland was 27% (denved from Table 5 of the
MILlR, p 47) About 709 acres of the Metropolitan study year Industnalland supply was wlthm the
Spnngfield portion of the UGB (MILPR, Table 5, p 47) The MILPR does not estimate demand wlthm the
Spnngfield UGB alone, nor does It segregate the estimated demand for Campus Industnalland m the
Metro area The subject site was Included In the list of short-term sites for new Industry (MILPR, p 2.0
and p 45, Subregion 7, Site 5) The study further estimated that the prOjected 20-year demand for
Industnalland 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 findmg that the
supply was not adequate to meet the projected growth In the commercial and light manufactunng
segments of the economy (MILPR, P 11)
The MILPR reported that In the study year there were 255 acres of the Campus Industnalland In the
Spnngfield UGB Unfortunately, there are no estimates of the depletion of Campus Industnalland m the
adopted and acknowledged studies If we apply the same 23% and 42% low and high depletIon rates
seen In the overalllndustnal supply, we denve a range of 148 to 196 acres of Clland m Spnngfield at the
end of the planning penod
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 dunng the planning penod, leaVing a plan
year (2015) Inventory of 239 acres The Spnngfield Commercial Lands Study (SCLS) updated plan year
estimates of Spnngfield's CommercIal land Inventory (within the UGB) It prOjected a Significant defiCit of
bUIldable land by 2015 If the hlstonc rate of consumptIOn continued
The mventones of all three general categones of land were studied by the Spnngfield Natural Resource
Study Report to gauge the Impact of setting aSide Goal 5 lands wlthm the Spnngfield UGB The 2005
study modified earlier Inventory estimates by Includmg plan amendments approved smce the onglnal
studIes and consldenng the maximum 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 Inventones of lands The estimates most speCific to
the situation are used
, The MILSS uses the term "SpeCial LIght" whIch has SIDCe been changed to "Campus Indus ~ ~II@urn-e8>rffiv~ ]
will use the later term "Campus Industnal" ~ ~
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Table 2 Proposed Impact on Projected Plan Year Land Inventories
Acres
General Use UBG Plan Yr Inventory PAPAl:. Total 1:.% Source
Med Density Res Metro 2015 239 19 258 8% Metro Plan
Commercial Spnngfield 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 Industnalland 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 Clland IS not an easy chOice, a matter of robbing Peter to pay 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 Will 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 Resldenllal, 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 relevant to the proposed PAPA
Economic Element PoliCY #B 6
'Increase the amount of undeveloped tand zoned for light Industnal 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 mdustnal
lands (sites defined as short-term m the metropolitan Industnal Lands SpeCial Study, 1991) to
non-mdustrlal designatIOns'
Clearly, these two poliCies often Will be In conflict Wrth a limrted supply of urbanlzable land, increasing
the amount of undeveloped commercial land Will frequently be at the expense of the mventory of Industnal
land The Metro Plan addresses the Issue of conflict between poliCies
'The respectIVe JUrisdictIOns recogmze that there are apparent conflicts and mconslstencles
between and among some goals and poliCies When makmg deCISions based on the Metro Plan,
not all of the goals and poliCies can be met to the same degree m every mstance Use of the Metro
Plan reqUires a balancmg of Its vanous components on a case-by-case bas,s, as well as a
selectIOn of those goals, objectives, and poliCies most pertment to the Issue at hand'
The Spnngfield Commercial Lands Study, the most recent economic opportumtles analYSIS regarding land
supply, contains the follOWing key poliCies
'Policy 1-A Malntam a mixed supply of large and small commercial sites through strategies such
as rezonmg or annexatIOn to serve Sprmgfield's future population'
'PoliCY 1-B Ensure that an adequate amount of commercial land IS deSignated m 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 t-C ,Mamtam at least a five-year supply of commercial land wlthm the Urban Growth
Boundary (UGB) that IS currently served or readily serviceable With a range of urban publIC
facilities and services'
1-25
'Policy 3-A Redesignate and rezone portions of Industnalland or residential tand 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
opportumtles '
CONVERSION TO COMMERCIAL DESIGNA TlONS
A projection of a Commercial land mventory defiCit wlthm the planmng period IS unacceptable under the
rules of StateWide Planmng Goal 9 The necessity of replemshmg the mventory IS not debatable
Nonetheless, the Issue of tradmg Industnalland, m this case Campus Industnal, for Commercial land
needs to be exammed carefully Because meetmg 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
Spnngfield Commercial Lands Study, particularly "PoliCY 3-A, " clearly trump "PoliCY #B 12" when
consldermg the proposed PAPA The proposed PAPA places the Nodal Development Area overlay
deSignation on most of the SITe, addressmg "Policy 1-B, " and "PoliCY 3-A "
The Land Conservation and Development CommiSSion (LCDC) recently reported to the Governor on the
conversion of mdustnalland to non mdustnalland The report was concerned WITh mamtammg an
adequate local supply of mdustnalland and preventmg conversions of pnme mdustnalland to non-
mdustrlal uses Their report was Wed "Promotmg Prosperity Protectmg Prime Industrial Land for Job
Growth" It made the followmg observation
'The Issue of conversion of Industnat lands-l.s linked directly to the goal of prOViding an adequate
supply of Industnal and other employment land for a vanety of economic actiVities Untimely or
undeSirable conversIOn of Industnallands, particularly conversIOn of strategic sites With umque
market features, can Interfere With accompltshIng the goal of prOViding adequate land
development opportumtles for economic growth and job creation' (p 11)
'The GMELS' [Greater Metropolitan Employment Lands Study] Phase 1 findings reinforce the
committee's assertion that tradltlonat Industnat areas, including those featuring heavy
manufacturing, warehouse/dlstnbutlon, Industnat service and waste management actiVities
should be protected from encroachment by incompatible non-Industnal uses by plaCing these
areas In so-called Industnal sanctuanes ' (p 19)
However, the report also observed,
'To better understand the concept of 'emptoyment 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 tine
between Industnat and non-industrial use IS becoming increaSingly bturred In the new economy
because many traded-sector and Industnal actiVities are now camed out In office and tech-flex
settings The latter type of Industnal uses IS perfectly compatIble With other employment actIVIties
and, thus, can be accommodated In mixed-use zoning dlstncts that Include retail, office,
institutIOnal and/or Itght industrial and even reSidential uses' (p 18)
'New and emerging Industnal uses These are high-tech, biotech, some manufactunng and K -~
research and development and are often located In office and tech-flex settings They are mo,~ ~~.~
productIVe when adjacent to Similar compames and their non-Industnal supplters, lenders al ~
support systems SUitable locatIOns for these actIVities Include many mIxed-use zones, as IC}lS
their scale, deSign and operational charactenstlcs are compatible With surrounding uses' (p t- I'
> ~
Although the conversion of CI rand to other deSignations may seem to have a negatIVe effect on th~~
potentIal for economic development, the net effect IS very pOSitIVe when consldenng the beneftfs 0 l!:!':1J ~
~ci
1-26
- ~. u.; l0 u.; U \!J u: .JI
R MAR 2 7
By
addIng to the extremely scarce supply of commercial land As the DLCD report to the Govemor pOInts
out, high-tech research and development firms are most productive when non-Industnal suppl1ers and
supportIng services are available to them 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 Industnalland use
SITE SPECIFIC ISSUES
The Campus Industnal portion of the site has been reserved as development ready land SInce 1995 It
was designated as Special Light Industnal (the precursor of Campus Industnal) for years before that
Despite the dWIndl1ng supply of CI land, not one Industnal development has been proposed for It The
reasons rl has not yet been developed are complex However, the site IS not Ideal with regard to the
qual1tles that the CI deSignation IS Intended to foster and preserve To attract the deSired Industnes, the
zone Imposes performance standards to reduce conflicts with adjacent zonIng dlstncts and negative
Impacts between sites withIn the CI d/stnct Itself From the Metro Plan, 'The actiVities of such firms are
enclosed wlthm attractive exteriors and have mmlmal environmental Impacts, such as nOise,
pollution, and Vibration, on other users and on surroundmg areas'
However, the srle 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-appl1catlOn report
lists 'air pollutants from surroundmg heavy mdustrlal uses, overhead e/ectrlcallmes and nearby
ralllmes which cause problems for certam types of high technological mdustrles 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 developl7lP.nt and
bUSIness Information for Eugene, Spnngfield and Lane County, and maIntaInS a computenzed Inventory
of vacant Industnal land and bUildIngs They report that whde numerous InqUires about the subject site
are receIVed from bUSInesses consldenng It as a locatIOn for new fac1l1tles, there are common objections
These Include the site beIng too close to establ1shed residential areas for Industnal uses, and too close to
the KIngsford charcoal plant for high-end office or research fac1l1tles OperatIng Permit 204402, Issued by
the Lane RegIOnal Air Pollution Authonty, 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 Industnal use, the McKenZie-Gateway Corporate Park became
ava1lable It has drawn I1ght-Industnal and high-tech uses whde the subject site has remaIned fallow
Compames bUildIng or acqulnng faCilities there have Included Sony, Symantec, and Shorewood
Packaging However, the Gateway Park has undergone slgmficant pressure from the pent-up demand for
CommerCial property Most of the Sony fac1l1ty 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 I1md types of commerCial uses and I1md 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 supenonty of Gateway over the subject site as a location for Campus Industnal
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 Clland, It would
take some of the commercial development pressure off Gateway ThiS would help reserve Gateway for
Industnal development. thus sacnficlng a margInal resource to foster more productive use of a supenor
one
COMPARING WAGES
How_might the conversion of the subject site's CI land to Commercial affect the ab1l1ty of Spnngfield to
- ' '
attract jobs that prOVide a family wage? We begin by asking what a family wage IS In Spnngfield
Although there IS no precise defimtlon of "famdy wage, " the term came Into use dunng the Industnal
_ Revolution when work was separated from home to a degree not seen before The concem was that the
breadWinner eam enough to allow the spouse to stay home tending the house and chtldren It became a
somewhat controversial term, some commentators assigning sexist overtones to rl Data In the follOWing
f-27
tables create a statistical context for the discussion If "family wage" can be defined as the gross mcome
needed to cover typical expenses of the average family, the tables below estimate these figures m
Spnngfield and Oregon
Table 3 Sormgfield, Oregon Average House!,old and Family Size
Number of Individuals
Average Household 2 55
Average Family 3 03 ,
Source U S Census Bureau, Census 2000 Summary File 3
Table 4 Spnngfield, Oregon TYPical 2004 Family Expenses
Source Two Adults, Two Adults,
One Child Two Children
Poverty ,n Amenca' $34,905 $43,862
E P I' $36,408 $41,748
1 Poverty m Amenca Project, Penn State University
2 Economic Policy Institute
Figures are for typical expenses Figures for One Adult and Two Children
are Wlthm approximately one percent of Two Parent, One child expenses
The table below gives U S Census data regardmg the median mcomes of mdlvldua/s and households
Note that the family household mcome IS Significantly higher than the highest mdlvldual median mcome
Data about the proportion of two-mcome households or the average wage of pnnclple breadwmners IS not
available Heads of family households may be makmg Significantly more than the average or many
households may have two mcomes Some combmatlon of the two IS likely Regardless, It mdlcates
caution should be used when makmg assumptions about family wages
Table 5 Spnngfield and Oregon Median Incomes
Oregon
Spnngfield, 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 Bureau, l.ensus ~OOO Summary File 3, adjusted to 2004 Consumer Pnce Index
To assess Impact of the PAPA on family wage jobs, we can estimate the average wage of employment m
the relevant land use deSignations The table below uses mformatlOn from the Lane County CounCil of
Govemments and the Oregon Labor Market InformatIOn Service to correlate the estimated number of
people employed by each mdustry sector wlthm a plan deSignation, and the Lane County average pay
wlthm each sector, to denve an estimated average pay for employment m a land use deSignation
ru~@~GW~J
[ill MAR 2 7 -
By
1-28
Table 6 Plan DesIgnatIOn Average Wage
Commercial
Industry
Construction
Manufactunng
Trans, Comm , and Utilities
Wholesale Trade
Retail Trade
Finance, Insurance and Real
Estate
Services
Government
Total
Weighted Average Pay
Employment
676 2%
779 2%
767 2%
585 2%
8,890 25%
2,455 7%
20,348 57%
1,218 3%
35718 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
$19,30919
$34,737 05
$27,34014
$37,239 00
Source of wage data OLMIS Lane County 2000 Industry sector average adjusted for 2004 Cons~mer
Pnce 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 Sprmgfield, the next table provides an
ovefVIew of the types of businesses and the approximate number of employees currently located In the
Gateway area (the only other CI zone In Spnngfield With Slgmficant development Most of the businesses
listed In the table would be allowed wltlM the proposed PAPA redeslgnatlons
.
.
1'-29
D)~@~DW[rllf
UI1 MAR 2 7 .l)
By
.
Table 7 Types of Busmesses and Approximate Emplo't.ees for Gateway Development
Gateway Businesses Address Type Approximate Number
of Employees
Royal Caribbean Cruise Lines
1000 Royal Canbbean Way Travel sales call center
(3900 Sports Way)
250-500
Symantec
555 Intematlonal Way
PaclficSource Health Plans
110 International Way
Ore90n Medical Laboratonesl
Oregon Vetennary Laboratory
123 International Way
Sacred Heart Medical Center
Foundation
123 International Way
Sacred Heart Medical Center
Matenals Management
Shorewood Packaging Inc
500 International Way
Globallndustnes
950 Internabonal Way
Grand Slam USA
921 International Way
McKenZie Athletics
909 International Way
PaCific Office Automation
911 International Way
Rex Myers Transfer
915 International Way
FedEx
700 International Way
Learning Tree
100 International Way
Planned Businesses A
ProfeSSional Credit Service
McKenZie Leasing and Finance
Computer Support Call
Center, Camp Tech
1200
Health Insurance
Headquarters
275
Medical Laboratones
300
FinanCial services
250
Matenals (Supply
handlers)
30
Manufacture paperboard
packaging products
Wholesale distribution
automotive parts and
accessones
50
-,
10-19
Indoor recreation Batting
cages, basketball, etc
1-4
Uniforms screen pnntlng
and embrOidery
10-19
Copier sales and copYing
servIces
20-49
MOVing and storage
5-9
Couners and messengers
20 -49
Child Day Care
N/A
Collection Agency
177
Heavy equipment leaSing
13
Source Informat/on gathered from Dex, Lane Metro Partnership, and GLMIS Info and links
A Profess/onal CredIt SefYIce and McKenZie LeaSing and Finance purchased 7 ac~
wlll move headquarters there -.source The Register Guard - Tuesday, November ~
a~ ~ \ij
MAR 2, 1 ~
1-30
By ---==
Table 8 below shows the estimated wages for employment typical of the busmesses m the above table
Companng this data with Table 6 mdlcates that the average pay for employment m the designations
proposed by the PAPA are similar to the average pay m Sprmgfield's developed CI designated lands
Table 8 Employment and Wage Estimates for Spnngfield CI Businesses 50 0:- more employees
Employment
Number Percent
177 640%
535 1930%
1,200 43 30%
300 1080%
Occupation
Bill and account collectors
Billing and Posllng Clerks
Computer Support Specialist
Medical and Clinical Laboratory
TechniCians
Miscellaneous Manufaclunng
Travel Customer Service
Representative
Total employees 2,772 100%
Weighted Average Pay _, $29,97594
Source Wage data for Lane County .<u04 from OLMIS webslte except Travel Customer SeNlce Rep
startmg pay published m Portland Busmess Journal - November 18, 2004
Source Employment data from Lane Metro Partner ship and from mfoUSA webslte
Average Pay
$30,060 00
$26,956 00
$34,87400
$27,08300
60
500
220%
1800%
$32,29200
$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
UGB'
"
Residential Land Use and Housing Element
Residential Density #A 11
'Generally locate higher densIty residential 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 resldentJat development With the prOVISion of adequate Infrastructure
and services, open space, and other urban amemtJes'
These resldenllal po!Jcles make clear the Importance of higher density residential development to the
future of the Eugene-Spnngfield Metropolitan area Yet here agam, there IS an apparent conf!Jct between
po!Jcles, namely Po!Jcy 3-A of the SCL and the reSidential poliCies of the Metro Plan Just CIted As the
followmg analYSIS Will show, sp!Jttmg the converted Industnalland between ReSidential and Commercial m
the proportion proposed IS entirely appropnate
While the mventory of Sprmgfield Commercial land Will be entirely depleted by the end of the planning
penod and the pnonty of creatmg more IS ObVIOUS, Metro Area surpluses are projected for both Industnal
and ReSidential The case for reapportlOnmg these mventones must be made To Illustrate the need for
an adjustment of the mventones, the followmg table looks at the relative rates of mventory depletIOn over
the plannmg penods studied
'.
fO)[E@[EDW[E~
W MAR 2 7 Jj
>
By
J
1'-31
Table 9 ProJected Depletions of Land Inventones Dunn9 the Plannmg Penod
Acres
I:.
-589
-4,565
-5,637
-1,482
-2,004
General Use
Med DenSity Res
All Res (lowest)
All Res (high est)
Industnal (lowest)
Industnal (high est)
Study Yr
828
5,830
5,830
3,604
3,604
Plan Yr
239
1,265
193
2,122
1,600
1:.%
-71%
-78%
-97%
-41%
-56%
Source
Metro Plan
SNRS
SNRS
SNRS
SNRS
The table above shows that, over the plannmg penod, the mventory of Medium Denstty Residential land IS
bemg depleted at a far faster rate than Industnalland (Note that the Metro Plan did not subtract
r('duct/ons of Goal 5 mventorles the SNRS subtracted from the broader mventones) Sacnficmg a small
porllon of Industrial land to replenish the more rapidly dlmmlshmg mventones IS Justifiable and prudent
To Illustrate the pomt furlher, the followmg table compares the final plan year mventorles of Industnal and
Resldentlalland The two plannmg penods end five years aparl, so the mventorles are not simultaneous
However, the comparison IS stili mstructlve Commercial land was left out of the table because the
Spnngfield plan year mventory IS negative All combmatlons of high and low estimates are calculated
Table 10 Combmed Plan Year Inventory Estimates
Total acreage Residential (low) Resldenlial (high)
193 1265
1,793 2,865
2,315 3,387
Industnal (lowest)
Industnal (high est)
1600
2122
Table 11 Relative Prooortlons of Totat Plan Year Land tnventory
Res Ulnd H Res Ulnd L I Res H/lnd H .
8 34% 10 800/;1 3740%
91 70% 8920% 6270%
Residential
Industnal
Res H/lnd L
4420%
55 90%
BALANCING INVENTORIES
To evaluate the Wisdom of shlftmg lands from one general use to another, we must establish a Viable ratio
between them The projected mventorles of Industnal and Residential land can be analyzed by findmg a
ratio of jobs to households, and then relatmg the number of dwellmgs supporled by the Residential
mventory With the jobs supporled by the Industrial Inventory Accordmg to the U S Census Bureau's
2000 Census, the median earnmgs of employed mdlvlduals m the Eugene-Springfield MetropolItan Area
are approximately $30,000 From the same source, the average household mcome 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
dwellmg Units per gross acre Therefore, the correspondmg numbers of jobs needed to supporl the high
and low estimates of plan year Resldent/al mventory are 11,385 and 1737
The Deparlment of Land ConservatIOn and Development, m theIr publication "Industrial and Other
Employment Lands AnalYSIS GUidebook" recommends usmg ratios from 6 4 to 9 6 when estlmatmg jobs
per gross acre of Industnalland Usmg the Industrial land mventory high and low estimates, the table
below compares the resultmg numbers of jobs With the Residential mventory
Table 12 Jobs Supoorted by PrOjected Plan Year Land Inventones
Resldenlial (lowest) _
Industnal (lowest') ,
Residential (high est) I,
Industnal (high est)
Acres
193
1600
1265
2122
du/ae job/du
6 15
Job/acre
64 to 9 6
lobs
1737
10,240 to 15,360
11385
13,380 to 20,371
w~@~~~~1~
\\1\\ M~R '2 1 L
--=
Bv -- .
6 15
64 to 9 6
>
1-,-32
rD' [E@ltD\YlIt'1
ill' MAR ~ 7 J
J
By
In the slowest growth projection, the mventones are not m eqUlltbnum If consumplton aT lana 'UPP""; :J,
on the high side, and mventanes are low, there 15 a gross d/spanty We should also remember that when
mventones get extremely low, such as less than 200 acres of bUildable land m a metropolttan area of thiS
Size, the supply curve shifts up as people begm to hoard and pnce gouge m anticipation of greater
shortages Clearly, for the health of the Metro economy, these mventones should be adjusted New
employers will not locate m the area If there IS no housmg for themselves or their employees Shlftmg
land from Industnal designations to Residential designations IS Justified
ConclUSion
Adopted and acknowledged mventones mdlcate that well before the year 2015, Spnngfield's mventory of
Commercial land will be severely, If not completely, depleted Metro Plan Poltcy #8 6 directs the City to
correlate the effectIVe supply of economic lands m tenns of sUltablltty and availability With the projections
of demand While the mventory of Clland may be small, OAR - DIVISion 9 (Economy) does not prohibit
convertmg mdustnalland to another category of employment land, or to another Goal mventory, as long
as a local government mamtams an adequate supply OAR 660-009-0025(2) states, "The total acreage
of land designated m each site category shall at least equal the projected land needs for each category
dunng the 20-year plannmg penod" [EmphasIs added] In thiS sItuation, the need for Commercial Land
will not be met by the end of the plannmg penod, and the mventory of Residential land lags far behmd
Industnal, yet the acknowledged mventones mdlcate a Campus Industnal mventory surplus An
adjustment IS warranted to mamtam equlltbnum and support other Metro Plan poltcles encouragmg
mcreased residential densities and supportmg Nodal Development areas
There 15 a synergistic relatIOnship between the three general categones of land use that reqUires balance
between them m order to sustam economic dIVersity The proposed redeslgnatlon of Campus Industnal
land to Commercial, Commeretal Mixed-Use, and MedIUm Density Resldent/~J development Will support
the dIVerSification and Improvement of the economy It IS consistent wIth the pnontles establtshed by
adopted and acknowledged poltcles Therefore, the amendment IS consistent With stateWide plannmg
Goal 9 "
3\ Staff ReSDonse
Staff concurs With the applicant's submittal However, the OLCO memo dated--March 12, 2007 stated that
both quantitative and qualltattve data should be conSidered In the Goal 9 response
Quantitative Oata
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 OLCO memo dated March 12, 2007 (see Attachment 6)
raised a concern about uSing data that was not adopted by the local JUrisdictions andlor fully reViewed by
OLCO 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 Industnat 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 Industnal bUildable lands Inventones Include the
supply, a demand analYSIS (flat 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
Inctuded In thiS database IS adequate, the report dId Identify additIOnal work necessary to get to
1-33
that pomt and mcludes a list of pol1cy options for additional consideration, mcludmg an
endorsement of the complete bUildable lands mventory as specified m Oregon Admm/stratlVe
Rules"
In November 2006, staff stated that while there may be additional options or vanatlons 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 pnmary data sources used by the applicant are the Spnngfield Commercial Lands Study, February
2000 and the Metropolitan Industnal Lands Special Study Metropolitan Industnal Lands Inventory Report,
July 1993 and the Metropolitan Industnal Lands Policy Report, July 1993 These are the same reports
used dunng the review process for Home Depot In 2001 The applicant has provided additional
information pertalnrng to the Natural Resource Study, adopted by the City In 2005 and a diSCUSSion on
the conversion of Cllands to resldenlial In addition to these discussions, staff raises the follOWing Issues
a) The up-ta-date land Inventory In the Gateway CI Dlstnct
Since the amendment of Article 21, Campus Industnal Dlstnct, staff has been keeping track of the
available vacant Campus Industnalland In the Gateway CI Dlstnct The Gateway CI Dlstnct has about
275 total acres and as of March 13, there are stili 116 acres that are vacant
~-
b) Current Market Forces
Explanation language under State-wide Plannrng Goal 9 states "Comprehensive plans and policies
shall contnbute to a stable and healthy economy m all regions of the state Such plans shall be
based on mventones of areas sUitable for mcreased economic growth and actiVity after takmg
mto consideratIOn the health of the current economic base, matena/s and energy availability and
cost, labor market factors, educatIOnal and techmcal trammg programs, availability of key publ1c
faCilities, necessary support facll1tles, current market forces, location relative to markets,
availability of renewable and non-renewable resources, availability of land, and pollution controt
reqUIrements"
The "current market forces" do not Include light Industnal development In the CI Dlstnct IS a trend since
the late '90's ThiS trend IS plaCing pressure on the Gateway CI Dlstnct 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 Spnngfield'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-
Spnngfield Highway extension project alive and the City Will begin the adoption process for thiS plan
Within the year ~ ~ @ ~ 0 \TI ~ J
Qualitative Data
MAR 2 7
a) Background DISCUSSion on Special Light/Campus Industnal Designations/Zoning
The original Intent of the "SpeCial Llghtlndustnal" (SLI) land use deslgnalion and zon lib'w3~.19 GIIO'"
"high tech" Industnal users that paid "family wages" and had a mlnrmum "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 plannmg poliCies should be developed
which will create an appropnate environment for mdustnal and research parks" (Ref P 32)
1:-34
~~@~DITl~ ""']{/
ill MAR 2 7 I
j
In 1982, when DLCD acknowledged the Metro Plan, both the Metro Plan designation ~d the zOnlnq
dlstnct were called SLI The Metro Plan SLI des]gnatlon stated "This IS a speclallz ;d concept .
developed to deal with relatIVely large (projected employment of at least 500 per firm) light
mdustrlal 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 mvo/ved are generally characterized by highly skilled
and technical labor and are located mdoors Often, preCIsion IS of such Importance that air
pollutants, nOise and vibratIOn associated with heavy mdustry are not compatible These
mdustrles are often located m campus-type mdustrlal parks and are generally mvo/ved m the
manufacture or assembly of final products of small Unit Size or research-type development m an
office-based atmosphere There are generally no effluents or other emiSSions to create
problems Heavy transport IS not Important Supportmg office-based commercial
development shall be considered an appropriate use when planned to complement the primary
mtent of special light mdustrlal development"
In 1994, the Metro Plan SLI des]gnatlon was changed to today's Campus Industnal (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 sltmg of light mdustrlal firms m a
campus-like settmg The activities of such firms are enclosed wlthm attractive exteriors and have
mlnlmat environmental Impacts, such as nOise, pollution and Vibration, on other users and
surroundmg areas Large-scale lIght mdustnal uses, mcludmg regional distributIOn centers and
research and development complexes, are the primary focus of thiS deslgnabon PrOVIsion IS also
made for small- and medIUm-scale mdustrlal uses wlthm the context of mdustrlal busmess parks
which will mamtam the campus-like settmg With minimal environmental Impacts Complementary
uses such as corporat~ office headquarters and supportmg commercial establishments servmg
primary uses may also be Sited on a limited baSIS Conceptual development plannmg, mdustrlal
park standards and site review processes shall be applied to ensure adequate CirculatIOn,
compatibility of uses and availability of large sites for light mdustrlal firms "(Ref P II-G-6)
The pnmary difference between the SLI and Clland use des]gnatlons IS there no longer IS a reference to
a specifiC employment threshold or specific types of Iightlndustnal uses
The Spnngfield Development Code was adopted In May 1986 and Included Article 21, Special Light
Industnal Dlstnct In 1994, this Article was amended and renamed the Cl Dlstnct, consistent With the
Metro Plan deSignation change Cited above The CI Dlstnct ]S pnmanly an Industnal zone that allows the
siting of light Industnal manufactunng and to a lesser extent, officelcommerclal uses In 2004, the City
Council approved a number of amendments to Article 21, the Campus Industnal DiStrict One of these
amendments placed a 40 percentl]mltatlon on the siting of permitted officelcommerclal (bUSiness park)
uses to keep the "lndustnal" Integnty of the dlstr]ct against the demand for bUSiness park uses because
thiS zoning dlstnct IS pnmanly an Industnal dlstnct The Iim]tatlon was established because In the
Gateway CI Dlstnct, there has been a great demand to site officel commercial uses Currently, the 30
percent threshold has been reached In the Gateway CI Dlstnct 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 Industnal development since Shorewood
Packaging, Inc In 1997 Shorewood Packaging IS the only Industnal use shown on the applicant's Table
7
The current SDC Article 21 CI Dlstnct purpose statement conforms with the current Metro Plan
deSignation statement "The CI District IS mtended to fully Implement the Metro Plan Campus
Industrial DeSignatIon and any applicable refinement plans The CI Dlstnct provides opportunities
for diverSificatIOn of the local economy by offering pnme sites m a campus environment for large-
scale light manufacturmg firms emphas/zmg modem technology and employmg skilled workers m
family wage jobs The term "campus" mcludes mnovatlve bUlldmg deSIgn, enhanced landscapes,
large open spaces and substantial pedestrian amenitIes Small- and medium scale light
manufactUring may and supportmg commerclal/ office uses shall be located wlthm a busmess
park, provided that combmed busmess parks do not exceed 40 percent of the gross acreage of a
CI District Busmess parks may mclude several bUlldmgs With multiple stories and a mix of uses
1'-35
Supportmg retail uses such as banks, restaurants and day care facllttles shall primarily serve the
employees m the CI Dlstnct, not the general publtc All uses m the CI Dlstnct shall meet sltmg and
operational performance standards to mmlmlze Impacts wlthm the CI Dlstnct and surroundmg
areas Permitted uses, mcludmg the storage of matenals and vehIcles necessary for the
operatIOn of the use, shall occur entirely wlthm enclosed bUlldmgs "
Today, there are two Clland use designations and zOning dlstncts In Spnngfield Gateway, In northwest
Spnngfleld, and the subject site west of 31't Street and north of Marcola Road The Gateway CI site IS
regulated by the Gateway Refinement Plan, adopted by the City Council In 1 992 A portion of the
Gateway CI area has been developed With both light Industnal manufactunng uses and business parks
The Gateway CI Dlstnct 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 Deve[opment
Under "SUitability", the applicant Cited staffs concerns about the subject site's appropnateness for CI
development Staff would like to expand on thiS pOint In a memo dated October 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 'P,erce
Property' The Industnat Study Task Force Fmal ReDort, L-COG, Apn11981, recommended about
50 acres of thiS property be designated 'speclalltght mdustnal' (SLI) The Task Force conctuded
the North Gateway SLI site could not have sanitary sewers extended m the near future The
'Pierce Property' has City services and would prOVide Spnngfield With an Immediately available
site ThiS SLI Site prOVides opportunities for combmmg mdust~~~/, commercial and medium
density reSidentIal uses m a balanced scheme" The memo went on to state "Problems
associated With the sIte mclude air pollutants from surroundmg heavy mdustnal uses and
overhead electncallmes and nearby ralllmes whIch cause problems for certam types of high
technological mdustnes Several 'high tech' firms have conSidered the 'Pierce Property' for a
potential tocatlOn, and all have found It unSUItable because of these problems Another problem
With the site IS OppOSitiOn to mdustnal 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 Llghtlndustnal (the prevIous name of the CI deSignation/zone) or CI
development
c) Imp[ementalton 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 cntenon and In the response to cntenon 7030(3)(b)
4\ Staff ConclUSion
Under Quantitative Data
ThiS staff report demonstrates that there IS a shortage of SUitable commercla[ sites Within the Spnngfield
UGB to meet the long-term demand for commercial land, as indicated by the SCLS
I -1
ThiS shortfall can result In greater competition, and can Impede the potentla[ for healthy economic ~
development, as bUSinesses and retail are forced to locate outSide Springfield due to a lack of sUltabh '8
sites The defiCit of commercial lands does not conform to State-wide Planning Goa[ g which require!
Junsdlctlons to maintain an adequate supply of commercially zoned lands to meet projected demand 1 lr ....
commercial land through the p[annlng penod The SCLS also notes that size and location further limit ~ ""
supply of buildable land Goal-9 reqUIres not only enough net bUlldab[e acres but also sites of vaned @ ~
"Sizes, types, locations and service leve/s " In order to foster economic growth and commercial ~ :::;;;
development IS It essential that the City maintain a diverse supply of bUlldab[e commercial land In var ~ ,
~==i ffi'
H6
'~ [Hf8 ~ 0 ill ~ ,I
< I
R MAR 2 7 - ~
By
sizes and locations The CAC found In the SCLS that there IS a need for a supply of both 'Q, ~~, ~"~
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 IS stili a surplus of industrial lands, Including Cllands In the
Gateway area
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 Industrlallanct., 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 g
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 SLI/CI
development, which apparently has had some Impact on why such development has not occurred over
lime on a "shovel ready" industrial site
The fact that the subject site IS stili under Single ownership and upon approval of these applications, 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 Fmdmc,
As conditioned, these applications comply With Goal g primarily because given the lack of an up-to-date
commerclall1ndustrlallands 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
.
1'-37
Condition of Acoroval #7
Submittal of a Master Plan application that shows the proposed home Improvement center bUilding
design similar to the eXisting bUilding In Scottsdale, Anzona or a bUilding design 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"
Aoohcant's Submittal
"Goal 1 0 reqUIres bUIldable lands for residential use to be mventorIed and reqUIres plans to encourage
the avaJlabllity of adequate numbers of needed housmg unJts at pnce ranges and rent levels
commensurate wJth the financial capabilitIes of Oregon households Oregon Administrative Rule 660
DIVISion 8 defines standards for compliance With Goal 10 OAR 660-008-0010 reqUIres that
'SuffiCient bUlldabte 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 changmg approximately 19 acres from Campus IndustrIal to
MedIUm DenSity ReSidential on the Metro Plan diagram and zonmg map, reqUIres compliance With
stateWide plannmg Goal 10, Housmg (OAR 660, DIVISion 8) (The total acreage of Medium Density
Residential land IS proposed to mcrease from 35 7 to 54 7 acres) The Post Acknowledgement Plan
Amendment (PAPA) IS consistent wJth the parts of the Metro Plan which address the reqUIrements of
Goal 10
The Eugene-Spnngfield ReSidential Lands Study (RLS) was completed m 1999 as a technical document
mformmg poliCY changes to the Metro Plan as part of the area's penodlc review reqUIrements The RLS
was acknowledged by the state Land Conservation and Development CommiSSion as bemg consistent
wJth Goal 10 The purpose of the RLS was to compare residential land needs With available land supply
The analYSIS does not reqUIre bUlldout of particular denSIties or numbers of Units on speCific sites or
wlthm the metro area as a whole
The RLS contams a detailed site mventory m the Technical AnalYSIS, which IS summanzed below (Table
13) as It pertams to the subject site
Table 13 ReSidentIal Land Study Site Inventory Marcola Meadows Property
Site (Subarea 18) Total Acres UnbUlldable Acres Constramed BUildable Acres
2 37 1 0 4 0 0 36 7
Source ReSidential Lands and Housmg Study Draft Inventory Document, 1999 page 64
Of the subject site's total bUIldable reSidential gross acreage that was mcluded m the mventory, 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, mcludmg publiC and CIVIC uses, roads, et:r: '\
Subtractmg thiS 32% leaves 25 2 net acres that one can reasonably assume was conSidered available ~
development m the RLS
S
DenSity Assumptions = <-
The RLS does not specify an assumed average denSity m the MDR deSignation Rather, Jt outlmes th: ~ .....
range of allowable densJtles (14 28 to 28 56 Units per net acre) which comclde with the gross density @ ~
range descnbed m the Metro Pjan (10 through 20 Units per gross acre) It also deSCrIbes the assumed ~ :E
C==.~'
\
II
I
>
ell,
1-38
~~@~Dill~]
lli MAR 2 7
distribution of housmg types wlthm each residential designation (page 21) and the ass I6Jed density hv
housmg type (page 22)
The RLS also contams data summarlzmg actual bUilt densities m the metro area However, only limited
data was available, and bUilt densities were assumed based upon data from years 1986, 1992, and 1994
Usmg these three years, the data show bUilt densITies between 21 and 23 umts per net acre for multi-
family development (RLS Techmcal AnalYSIS, p 21) No longer-term trend analYSIS IS available
These figures reflect bUilt density for multl-famdy projects only, not all development bUilt m the MDR
designation Smce smgle famdy houses and duplexes are allowed m MDR, the average density across
the designation IS likely s/gmficantly lower While average denSity figures have not been calculated for
MDR areas due to the difficulty of obtammg the data, smgle family development occulTed at roughly 4
umts per acre and duplex development at 10 unrts per acre dUring the same years (RLS Techmcal
AnalYSIS, Page 21)
Surplus of Residential Land
There IS documented a net surplus of residentIal land to seNe metro housmg needs through 2015, for all
residential land categones combmed, and medIUm denSity residential land m particular The comparison
of resldenttalland supply and demand IS shown m Table 14 below
Table 14 Comparison of Resldentlat Land Supoly and Demand, In Acres
Medium DenSity Residential Ail Residential
Supply 828 5,802
Demand 589 4,564
Surplus ,239 1,238" .
Source RLS Technrcal AnalYSIS, 1999, page 52
The supply figures also do not mclude mixed use and commercial deSignations that can accommodate
residential development In additIon to calculatmg supply and demand m acres, the RLS conSIdered the
supply and demand for housmg umts ThiS comparison also shows a net surplus across all reSIdentially
deSignated land, and wlthm the MDR deSignation m particular, as shown m Table 15 below
Table 15 Companson of Residential Land Supply and Demand, In Ur/ts
Medium DenSity Residential Ail Residential .
Supply 13,078 48,519
Demand 9,432 40,406
Surplus 3,646 7,913
Source RLS Technrcal AnalYSIS, 1999, page 53
If the assumed surplus of medIum denSity umts (3,646) IS divided by the assumed number of surplus
medium denSity acres (239), the denved denSity for MDR land IS 1525 umts per net acre ThiS IS not,
however, an adopted denSity assumption '
I
The RLS does not specify how to determme expected denSity or number of unils on a partIcular site One
source of expectation IS the McKenZie Gateway MDR site Conceptual Development Plan, which
accommodates a total of 1, 195 umts across 185 acres, at an average denSity of 11 umts per acre, m ItS
prefeITed altematlve (Scenano E) Alternatively, one can estimate the amount of expected development
on the site by extrapolatmg assumptions contamed wlthm the Residential Lands Study Itself
In fact, the appltcant's proposal retams a surplus m the residential housmg mventory, while mcreasmg the
mtenslty of residential development ThiS strategy supports nodal development and fulfills the
reqUirements of Goal 1 0 by accommodatmg a quantIty of umts that can be reasonably defended gIven the
adopted findmgs, analYSIS, and poltcles contamed m the RLS
DenSITies Will m fact be mcreased over what would otherwise lIkely be bUilt The Residential Lands Study
concluded that through the plannmg honzon (2015), the area would have a surplus of land m all types of
j:-39
residential land use categones The study was adopted and mcorporated mto the Metro Plan m 1999,
and was acknowledged by LCDC as meetmg the area's Goal 1 0 reqUirements Specifically, the RLS
concluded that there was a surplus of 239 acres and 3,646 Units m the MDR category (Metro Plan, pages
/II-A-3 and II-A-4)
In addillon, the applicant's proposal IS supported by applicable Metro Plan housmg policies, mcludmg
those m the resIdential land supply and demand, reSidential density, and design and mixed use areas, as
outlmed m the Metro Plan SpeCific Elements section
OAR _ DIVISion 8 does not prohibit creatmg additional reSidential land after a local govemment has
established an adequate supply Therefore, for the purposes of DIVISion 8, illS not necessary to establish
a maximum acreage or to JUStify the deSignation of reSidentIal land m excess of projected land needs
The ReSidential Lands and Housmg Study estimates of the long term projected land needs, and the
determmatlon that there IS an adequate mventory, 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 plannmg goal, there would be a greater
burden of Justification for the expansion of residential lands The exactmg standards for takmg a Goal 2,
Parlll 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 m thiS case Detennmmg the extent of the Goal 1 0 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 plannmg Goa/1 0, supports applicable adopted pO/lcles, and furlhers the objectIVes of nodal ~
development"
Staff's Resoonse
Staff concurs With the applicant's submittal The Metro Plan diagram amendment application proposes to
change the subject site from Campus Industnal to Medium Denslty/Nodal Development Area and amend
the Spnngfield ZOning Map from Campus Industnal to Medium DenSity ReSidential Goal 10 reqUlfes that
local Junsdlctlon adopt a hOUSing study that contains an Inventory of bUildable lands, and that the
" housmg elements of a comprehenSive plan should, at a mmlmum, mctude (1) a comparison of
the distributIOn of the eXlstmg populatIon by mcome With the dlstnbutlon of avaIlable housmg
Units by cost, (2) a determmatlon of vacancy rates, both overall and at varymg rent ranges and
cost levels, (3) a determmabon of expected housmg demand at varymg rent ranges and cost
levels, (4) allowance for a vanety of denSIties and types of reSidences m each community, and (5)
an mventory of sound housmg m urban areas mc/udmg Units capable of bemg rehabilitated" The
Eugene-Spnngfield 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
wlthm the UGB for the 20-year plannmg period at the time of Penodlc Review" Ref "Key Policies",
Page 3 of the Report The twenty-year penod ends In 2015 The applicant shows a surplus of MDR I"" ~
In the Inventory that covers the life of the study ThiS IS further supported by Finding 4 "There IS ( I
suffiCient bUildable reSidential land wlthm the UGB to meet the future housmg needs of the ~
prOjected population In fact, the 1992 reSIdentIal bUildable land supply exceeds the 1992-201 ~
reSidential demand m all reSidentIal categones Assummg land IS consumed evenly over the =
penod, by 1999, there Will be at least a 20-year supply of residential land remammg mSlde the ;;
UGB "Ref "ReSidential Land,Supply and Demand", Page 13 of the Report The applicant also statel ~ ""
"OAR _ DIVISiOn 8 does not prohibit creatmg additIOnal residential land after a local governme @ ~
has established an adequate supply" The applicant proposes to change approximately 18 acres f dl/M
(=Y==5
1-40
,
ciJ
]~ @ ~ 0 ill ~ ~
MAR 1,1
.:J
By
Campus Industnal to Medium Density Residential The discussion Justifying the reduc don 01 Uland IS
contained In the response to Goal 9
Note The City has recently Inrtlated 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 stili 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
Ut[lizlng Landscaping and Architectural DeSign Standards" Reduce Impacts of hIgher denSIty
resIdentIal and mixed use development on surroundmg uses by consldenng site, landscape and
archItectural deSIgn standards or gUldelmes In local zonmg and development regulatIons "Ref
"Key Polic[es", Page 4 of the Report A major component of the proposed development [S the "water
feature" incorporating the eXisting drainage ditch which IS Intended to be relocated Th[s will form a
"natural" boundary between the proposed MDR and commerc[al development, the maJorrty of which will
be mixed use The proposed residential development will consist of Single family cluster subdIVIS[On,
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 to the loss of Clland,
land proposed to be zoned CC Will be conditioned to meet CI andlor MUE deSign standards as part of thiS
application
DenSity ~
The applicant states" ThiS strategy supports nodal development and fulfills the reqUIrements of Goal
10 by accommodatmg a quantIty of umts that can be reasonably defended gIVen the adopted findmgs,
analYSIS, and poliCies contamed m the RLS "The residential denSity Issue [S 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 [mplement
"Proposed" Nodal Development Area 7C Transportation polic[es require a minimum res[dentlal 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 16010(2) states the required
MDR denSity IS 10-20 dwelling units per net acre Implementing the node Will guarantee that the
m[nlmum residential density for Marcola Meadows Will be at least 12 dwelling units per acre It should be
stated that the MUC zoning dlstnct allows resldent[al development to occur, however, to date, the
applicant has not stated If resldent[al development w[1I occur In the MUC If the applicant chooses thiS
option [n the future, the same 12 dwell[ng unrt per acre standard must be met For the record, hOUSing IS
not allocated to mixed use designated land due to State Admlnrstratlve Rules
Finally, the City has residential bu[ldlng permit Information that demonstrates that multi-family
developments are currently occurrrng at 11 67 dwelling unrts per acre which [S close to the 12 dwell[ng
unrt per acre requirement for Implementation of Nodal Development Area deSignations
,
,
1'-41
Housing Density and Housing MIx
Springfield Housing Types and Density
Based on BUilding Permit Data- July 1999-0ctober 2006
Housing
Type
Conventlona
I Single
Family
I Manufacture
d Home
I Total Single
Famllv
I
~ Duplex'
I TrI-Plex
Four-Plex
I Apartment
5+
Total Multi-
Family
Unrts
Excluding
Duplexes
I Total Unrts
. 19 . 200 . 200 . 200 . 200 . 200
99 0 1 2 3 4
200
5
200
6
Total
Dwellln
g Unrts
Housln
g Type
by%
. Dwelh
ng
Unrts
Per
Acre
30
209
121
252
155
144
116 1257
. Total
Acres
524%
2276
230
9
38
46
45
26
31
27 253
105%
562
31
1510
22
30
16
14
38
38
17 193
629%
2838
532
18
o
o
o
3
4
40
6
o
6
o
4
200
6
12
122
6
140
o
3 30
56 . 300
o 368
80%
309
625
6
84
o
61
324
195
515
359
359
698
219 2401
12%
125%
1 2
31 9
163
25
941
369
153%
1512
291%
1000%
493
3641
1167 1
660 J
'Duplexes may be bUilt In both various residential zOning districts About 57% of all duplexes are found In
LOR zOnln9 districts Some 36% are found In MDR zones and 5% In Public Land and Open Space
districts (Lane County Housln9 Authority)
See also the applicant's response to Goal 9 under Comprehensive Plan Residential Policies
Staff Fmdmo
These applications comply with Goal 1 0 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 Aooroval #8
Submittal of a Master Plan application that demonstrates that residential development will occur at 12
dwelling Units per net acre
,
1-42
[~~~G~~~1
\ill MAR 2 1 ~
By
~ .
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GOAL 11 PUBLIC FACILITIES AND SERVICES OAR 660-015-0000(11)
By "
"To plan and develop a tImely, orderly and efficient arrangement of public facllltl !S and services
to serve as a framework for urban and rural development"
Aoohcant's Submittal
"Goal 11- Public FaCilities and Services To plan and develop a timely, orderly and efficient
arrangement of publiC facMles and services as a framework for urban and f11ral development
OAR 660-011-0005(7)(a)-(g) DefinitIon of Public FaCilities
(a) Water
(b) Samtary Sewer
(c) Stonn sewer
(d) Transporlatlon
Pursuant of State-wide planmng goal 11 , the Clfy of Spnngfield has adopted or endorsed the followmg
documents
. Eugene-Spnngfield Metropolitan Area General Plan, revised 2004
. City of Sprmgfield Zomng Map, May 2006
. Eugene-Spnngfield Metropolitan Area PubliC FaCilities and Services Plan, 2001
. City of Spnngfield Storm water Management Plan, ReView Draft January, 2004
. Clfy of Spnngfield Stonnwater Management Plan, Major Basms/Sub Basms Map, ReView Draft,
January, 2004
. Ctfy of Sprmgfield Conceptual Road Network Map, Updated July, 2005
. City of Sprmgfield Dnnkmg Water Protection Plan, adopted May, 1999
Resoonse
The Eugene-Spnngfield Metropolitan Area General Plan Diagram and the City of Spnngfield Zomng Map
shows that the subject site IS mS/de of the Ctfy of Sprmgfield Urban Growth Boundary State-wide
P1anmng Goal 11 ensures that public facMles and seN/ces are proVided m a timely, orderly, and effiCient
manner ThiS application proposes to amend the Eugene-Spnngfield Metropolitan Area General Plan
Diagram and Will not affect proVIsion and alTangement of public facilities and services The followmg
findmgs demonstrate that the eX/stmg public facMles and services have the capacity to serve future
development on the subject site and Will be provided m a timely, orderly, and effiCient manner
Subsequent plannmg actions limited to the subject site (I e Master Plan and Site Plan applications) m due
time Will address the arrangement of publiC faCilities and services on the subject site See Exhibits 8 and
9 for more mformatlon
Potable Water Service
The subject site Will be served by connectmg to eXlstmg Spnngfield Utility Board (SUB) water Imes
adjacent to the site There are SIX potential water Imes adjacent to the subject site to have the capacity to
serve future development There are two 12" PVC water Imes along 2B'h street have the capacity to serve
development m the southwest porllon of the subject site There IS an 18" water Ime m the Right-of-Way of
31st street that has the capactfy to serve future development CUlTently, there are two 10" water Imes that
can serve future development on the west porllon of the subject slfe One of these water Imes m located
approximately 100' norlh of the center Ime of Bonme Lane and the other IS approximately 120' south of
the center Ime of Bonme Lane Additionally, there IS a 16" water Ime on the south Side of Marcola Road
approximately 1075 ft west of the mtersectlon of Marcola Road and 2B'h street that has the ability to serve
development m the southem porllon of the subject site The water Imes m Marcola Road and 31st Street
contam suffiCient capacity to serve the site Therefore, thiS key urban service Will be proVided m an
orderly and effiCient manner
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Sanitary Sewer
The CIty of Spnngfield provIdes sanitary sewer service for lands wlthm the City of Spnngfield City Itmlts
The subject site IS wlthm the City of Spnngfield cIty Itmlts and can be served by connectmg to eXlstmg
samtary sewer Itnes adjacent to the property The subject sIte IS located m the North Sprmgfield waste
water basm and currently has adequate capacIty A 42" concrete mam Ime for the City of Spnngfield
traverses the lower thIrd of the subject sIte that flows east to west and collects all samtary sewer water for
the subject sIte wIth some fill reqUIred m the north The northeast comer of the project will be served by
an eXlstmg sewer m 315/ Street Currently, thIs mam Ime has the capacity to facllttate the proposed
development's samtary sewer needs
There are three sewer Imes that connect to the mam trunk Ime on the subject SIte, an 8" PVC Ime
connects to the mam trunk Ime from the south, approximately 250' west of the mtersectlon of 28" street
and PIerce Parkway, an 8" PVC Ime runnmg north and south along 315/ street connects to the mam trunk
Ime from the north m the publIc RIght-of-Way for 31" street, an 10" concrete Ime runnmg north and south
connects to the mam trunk Ime from the north, approxImately 240' west of the northwest boundary of the
subject sIte Therefore, thIS key urban servIce wIll be provIded m an orderly and effiCient manner
Transportation
The project area IS currently served by Marcola Road, 28", and 31" streets Marcola Road, the southern
border of the subject Site, IS fully Improved and IS deSignated as a Mmor Artenal 28" and 315/ streets
border the eastern boundary of the subject site The City of Spnngfield's Conceptual Road Network Map
Identifies 28" and 315/ streets as the "315/ Street Connector" The 28'" street portIon of/he 315/ Street
Connector IS fully Improved and classIfied as a Collector street Thirty-First Street IS not fully Improved
and also IS classified as a Collector street Currently, 315/ street IS a two-lane asphalt paved road that
d'jes not have gutters, curbs, or sidewalks, although there IS a City of Spnngfield 10' utility and sIdewalk
easement on the west side of 315/ street to facilitate road Improvements m the future
In thiS section of thiS statement addressmg State-wide Plannmg Goal 12 - "Transportation" there are
additional findmgs regardmg publtc facilitIes and services, and those diSCUSSions are hereby referenced
and mcorporated
Stonn Water Control
The subject site IS located m #18 Sub-Basm of the West Spnngfieldf'Q" Street Major Basm Stonn water
facilitIes will be deSigned as a component of subsequent land use approvals to meet City of Spnngfield
storm water poltcles and regulations Preltmmary storm water plans will keep the development's stonn
water runoff rates equal to pre-<ievelopment peak stonn water runoff rates ThiS wIll be achieved through
multiple on-site detention ponds, blo-swales, and open-channels See ExhIbits 8 and 9 for more
mformation
ConclUSIon
The subject site IS mSlde of the Eugene-Spnngfield Metropolitan Urban Growth Boundary and City of
Spnngfleld city Itmlts ThiS enables publtc faCilities and services to be extended to the site m a tImely,
orderly, and effiCient manner The subject site has eXlstmg publiC facilIties and services adjacent to the
site whIch also have the capacity to serve future development Therefore, thiS amendment IS m
compltance With Goal 11 "
Staffs ResDonse
1-
Staff concurs With the applicant's submittal Goal 11 calls for effiCient planmng of public services sucr ~
sewers, water, law enforcement, and fire protection
s
The Eugene-Spnngfield Metropolitan Public Services and FacIlities Plan (PFSP), ad revised In Decem :liir
2001, IS a refinement plan of the Metro Plan that gUides the provIsion of public mfrastructure, mcludlnk ~
water, sewer, storm water management, and electnclty The PFSP specifically evaluated the Impact (f@
nodal development and mcreased development denSities on the potential node sites bemg considered ~
the Spnngfield area
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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 coordmate the provIsion of faCilities and services to areas targeted by the
cities for higher densitIes, mfiJl, 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 Spnngfield Utility
Board for water and electnclty, by Wlllamalane Park and Recreation Dlstnct, by School Dlstnct 1 g, and by
the City of Spnngfield for maintenance of sewers, streets, alleys, library and development and permit
services
Staff Fmdmq
These applications comply With Goal 11 because there are urban level public services available to the
subject site
GOAL 12 TRANSPORTATION
"To prOVide and encourage a safe, convement and economIc transportatIon system"
Aoollcant's SubmIttal
"Goal 12 IS Implemented through DIVISion 12,..oAR 660-012-0000 et seq The goal and diVISion are
Implemented at the local level by the Eugene-Spnngfield Metropo/Jtan Area Transportation Plan
(TransPlan) acknowledged for compl1ance With Goal 12 m 2001
Plan amendments and land use regulation amendments are regulated under OAR 660-012-0060, the
'TransportatIOn Plannmg Rule' If an amendment s/gmficantly affects a transportation facility, a local
government must proVide a form of mlflgatlOn O~R 660-012-0060(1) states
'A plan or land use regulation amendment slgmficantly affects a transportation facIlity If It woutd
(a) Change the functIOnal claSSificatIOn of an eXlstmg or planned transportatIOn facilIty (exclusive
of correctIOn of map errors m an adopted ptan),
(b) Change standards Implementmg a functional claSSification system, or
(c) As measured at the end of the plannmg period IdentIfied m the adopted transportatIOn system
plan
(A) Allow land uses or levels of development that would resutt m types or levets of travel or
access that are mconslstent WIth the functional classlficatJon of an eXlstmg or planned
transportation faclllty,
(B) Reduce the performance of an eXlstmg or planned transportation faCIlity below the mmlmum
,acceptable performance standard Identified m the TSP or comprehensive plan, or
(C) Worsen the performance of an eXlstmg or planned transportatJon faCility that IS othelWlse
projected to perform below the mlmmum acceptable performance standard Identified m the TSP
or comprehensIVe plan'
OAR 660-012-0060(1)
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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 transporlatlon facIlIty, nor would It change
the standards for Implementmg 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 m levels of travel or access which are mcons/stent with the functional classification of a
transporlatlon facility The policies of the City of Spnngfield Development Code and the TransPlan
establish the requested plan designation as appropnate to the classification of the streets seNmg the site
Specific reqUirements for access to those streets will be determmed through the Master Plan and Site
Plan reviews and approved only upon demonstration of compliance With the provIsions of the
acknowledged comprehensive plan and Implementmg regulations
With regard to OAR 660-012-0060(1)(c)(B) and (C), a Traffic Impact AnalYSIS (TlA) evaluatmg the
performance of eX/stmg and planned facIlities as a result of the development proposed by thiS applIcation
has been performed That TIA IS submitted concurrently With thiS wntten statement and the findmgs of
that analYSIS are hereby mcorporated by reference
TlA Scoomo
When determmmg the effect of a proposed PAPA, the TPR reqUires local govemments to evaluate
Impacts to planned faCilIties as well as those already eXistIng Accordmg to OAR 660-012-0660(4)(b)(C),
transporlatlon faCilities, Improvements or seNlces mcluded m a metropolitan plannmg organization's
federally-approved, financially constramed regional transporlatlon system plan must be mcluded m the
analYSIS The MetropolItan Plannmg Committee adopted the Central Lane Metropolitan Plannmg
Organization Regional Transporlatlon Plan on December 9, 2004 The MPO-RTP establIshed a plannmg
honzon of 2025 ThiS IS the planning hOrIzon used by the TIA The followmg projects (Tables 16, 17 and
18) are wlthm the study area of the TIA and are lIsted m MPO-RTP 'Table 1a - Fmanclally Constramed
Capital Investment ActIOns Roadway Projects'
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Because the ultimate purpose_of the proposed PAPA IS to gam approval of a master planned @ <t
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development, transporlatlon modelmg of post-development tnp generation IS based on the street ne .~
depicted m the Prel/mmary Plan illustration In addItion to calculatmg the maximum Impact of future r =' ==:
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Table 16 Project Category Artenal Capacity Improvements
Name GeographiC Limits Descnptlon JUriSdiction
42nd Street @ Marcola Road Traffic control Spnngfield
Improvements
42nd Street at 42nd StlHwy 126 Traffic control Spnngfield
Hlg hway 126 Improvements
Eugene-Spnngfield @ Mohawk Boulevard Add lanes on ODOT
Hlqhway (SR-126l Interchange ramps
Table 17 Project Category New Collectors
Name GeographiC Limits DeSCription
JUrisdiction
V Street
31 st Street to Marcola New 2 10 3-lane Spnngfield
collector
Table 18 Protect Category Urban Standards
Name GeographiC Limits Descnptlon
JUriSdiction
42nd Street
Marcola Road to
Railroad Tracks
Reconstruct to 3 SpnngT1elo
lane urban
facllily
Upgrade to 2 to Spnngfield
3-lane urban
facllily
31 st Street
Hayden Bndge Road to
U Street
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Estimated Length Number
Cost
$248,000 0 712
$200,000 0 799
$310,000 068 821
Estimated Length Number
Cost
$2 173,000 065 777
Esllmaled Length Number
Cost
$2,551,000 I Uo ~
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$1 300,000 085 ~5
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development restncted only by the regulatIOns of the proposed plan desIgnatIon, the TIA employed an
alternatIve worst-case scenano based on stIpulated development restnctlons The level of development
possIble under the restnctlons IS far greater than what IS proposed by the Prellmmary Plan //Justratlon, but
StlJ/ results m fewer vehIcle tnps than the unrestncted worst-case The T1A compared the Impacts of
future development under the eXlstmg plan desIgnatIons, under the proposed plan desIgnatIons without
restnctlons, and under the restncted proposed plan designations The mtegnty of the post-development
transportatIon modelmg assumptions can be assured by the condItIonal approval of the proposed PAPA
and mamtamed by subsequent sIte plan review and development constramts
Traffic Imoact
OAR 660-012-0060(1)(c)(B) Though some facildles wlthm the scope of the study are projected to operate
below the performance standard m the plan year, none WIJ/ do so as a result of the proposed PAPA
Those facMles projected to operate below the performance standard m the plan year WIJ/ do so
regardless of the proposal under revIew Therefore, no faCIlitIes are s/gmficantly affected under thiS
definition
OAR 660-012-0060(1)(c)(G) Withm the scope of the study, one facility that IS otherwise projected to
operate below the performance standard m the plan year IS made worse by the proposed PAPA
Therefore, thiS facMy IS slgmficantly affected under thIS defimtlon
. Mohawk Blvd @ Eugene-Spnngfield Hwy eastbound ramps
OAR 660-012-0060(3) permds local governments to approve a PAPA that s/gmficantly affects a fac1llty
WIthout requmng that mItIgations bnng the facilIty up to the applIcable performance standards ThIS IS
aJ/owed only where the facIlity IS currently operatmg below the performance standard and, despite any
planned faCilIties as defined m Section (4) of the TPR, It IS also projected to operate below the
performance standard m the plan year Takmg mto account the planned facilitIes prevIously dIscussed,
the T1A demonstrates that these conddlons are met for the facility listed above OAR 660-012-0060(3)
reqUires transportation Improvements that mItigate the net Impact and aVOId further degradation m the
development (openmg) year To address Impacts at the eastbound ramps of the Mohawk Blvd @
Eugene-Spnngfield Hwy mtersectlon the T1A proposes the foJ/owmg mitigatIon
. Traffic control changes aJ/owmg left-turns form the eastbound ramp center lane
WIth regard to OAR 660-012-0060(1)(c)(B) and (G), the analYSIS has determmed that measured at the
end of the plannmg penod the proposed amendment WIJ/ nedher reduce the performance of eX/stmg or
planned transportatIon facilitIes below the mmlmum acceptable performance standards Identified m
TransPlan nor worsen the performance of transportatIOn facMles that are otherwIse projected to perform
below the mlmmum acceptable performance standard Identified m TransPlan
Goncluslon
Pursuant to OAR 660-012-0060(1), the proposed PAPA s/gmficantly affects a transportation fac1llty The
,
TIA proposes to mItIgate the degradatIon of the facilIty under the conditIons ofOAR,660-012-0060(3) By
reqUlnng development to meet the condItions of OAR 660-012-0060(3), the Glty may approve the PAPA
m compliance WIth OAR 660-012-0060 Therefore, the Glty of Spnngfield can find that the proposed
PAPA IS consIstent With StateWIde Planmng Goal 12 I
,
Staff ResDonslt
Staff has evaluated the submitted Marcola Meadows Zone Ghange Traffic Impact AnalYSIS (TIA) prepared
by Access Engineering, dated February 20, 2007, With respect to State-wide Plannrng Goal 12 per
OAR 660-012-0060 and the 1999 Oregon Highway Plan (OHP) as reqUired by SDC 7070(3)(a) Staff
finds that the assumptions, methods and data used In the TIA are consistent With recognrzed profeSSional
traffic engineering standards and practices
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Goal 12 encourages development that aVOids principal reliance on one mode of transportation Mixed
use development IS Intended to bnng 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 Planmng 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-Spnngfield 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
Development 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 determlnalion 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" deslgnatlon/zomng, assuming "reasonable worst case" development
scenarios The TIA concludes that the worst-case development scenario under the "Amended'
deslgnatlonlzonlng would generate 50% more dally vehicle tripS and 27% more PM Peak-hour tripS than
under the "Current' deslgnatlon/zomng The report then analyzes a development scenariO that would be
less intensive than the "Amended' de~lgnatlon/zonlng worst case but substantially more Intensive than
the "Current" deslgnatlon/zonlng
Based on analYSIS of the" Amended Zomng Capped" scenariO, 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 scenanos analyzed have assumed land use and tnp generation estimates as
shown In the following tables
Table 3 Gross Tnps - Current Zomng
Current Land Use (ITE Size Umt ADT PM Peak Hour
Zomng Code\
Rate Tnps Rate Tnes
MDR Apartment (220) 7140 Dwelling 622 4441 057 410
Units
Shopping Center 1000 SF
CC (820\. 1300 GFA 6195 8054 573 744
CI Research & 336 Acres 7961 2675 1544 519
Development (760\
CI BUSiness Park (770) 224 Acres 14791 3313 1682 377
Total 18,483 2,050
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Table 4 Gross Trips - Amended Zonmg Worst Case
I Amended Land Use (ITE Size Unit ADT PM Peak Hour
Zonmq Code)
I Rate Trips , Rate Trips
1- MDR Apartment (220) 1094 0 Dwelling 615 6725 057 619
Units
I Improvement Store 1000 SF
CC (862) 1710 GFA 2980 5096 245 419
Shopping Center 1000 SF
3500 GFA 4380 15331 409 1431
MUC (820) 500 1000 SF 1565 782 270 135
General Office (710) GFA
Total 27,935 2,604
Table 4C Gross Trips - Amended Zonmg Capped
Amended ' land Use (ITE Code) Size Unit ADT PM Peak Hour
ZOning
Rate Trips Rate TriPs
Single-Family Residential 230 973 2237 099 227
MDR (210) 100 Dwelling 642 642 060 60
Townhouses (230) 400 'Unrts 639 255~~o 059 238
Apartment (220)
CC Improvement Store (862) 1710 1000 SF 2980 5096 245 419
GFA
1000 SF
MUC Shopping Center (820) 3500 GFA 4928 12320 431 1146
General Office (710) 500 1000 SF 1565 782 270 135
GFA
Total 23,631 2,225
The above development scenarros can be compared with the assumed land uses presented In the
submitted "Preliminary Plan illustration'
Prehmmary Plan IllustratIOn
Amended Land Use (ITE Code) Size Unit
Zonmq
Single-Family Residential 192
MDR (210) 123 Dwelling
Townhouses (230) 174 Unrts
Apartment (220\
CC Improvement Store (862) 1710 1000 SF
GFA
1000 SF
MUC Shopping Center (820) 2000 GFA D[E@[EOW[E~
General Office (710) 387 1000 SF
GFA R
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This companson shows that the development scenano represented by the Prelimmary Plan illustration IS
significantly less mtense m both MDR and MUC zones than the Amended Zonmg Capped scenano, and
would likewise achieve Goal 12 compliance
Issues
Llmltmo Develooment
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 (tnp cap) on the actual number of tnps that may be generated by
future development on the site This approach requires a procedure to measure and monitor site tnp
generation as development takes place over time A Tnp MOnltonng Plan (TMP) IS often used for thiS
purpose Under thiS approach conditions of approval for a PAPA would be that a tnp cap be Imposed on
the property, and that a TMP be adopted as part of Master Plan approval to establish how adherence to
the tnp cap limit would be mamtalned over time
A disadvantage of a TMP approach IS that It focuses entirely on tnp generation, and places no direct limit
on the type, level or schedule of site development If and when the site tnp cap IS reached no more
development would be permitted without amendmg the limit
In the present case, It IS more deSirable to acknowledge that the Amended ZOning scenano would
significantly affect transportation facilities, and accomplish Goal 12 compliance through a combination of
the proposed mitigation and "Altenng land use designations, denSities, or deSign reqUirements to reduce
demand for automobile travel and meet travel needs through other modes" per OAR 660-012-0060(2)(c)
Llmltmg deSignations and densities to those assumed m the Amended Zonmg Capped scenano, or a less
mtense scenano, would be sufficient to demonstrate Goal 12 compliance
Future Traffic Analvsls ReoUlrements
A key feature of the tnp generation estlmatmg procedure for vanous scenanos m the TIA IS accountmg for
"Internal tnps" These are tnps made between different land uses within a development Site, as opposed
to tnps that have off-Site onglns or destmatlons ObViously, all the on-site uses Involved In thiS exchange
of mternal tnps must eXist for thiS concept to have meaning Because the Goal 12 test IS applied at pOint
15 or more years Into the future, assummg full bUild out of the site presents no Issue However, In a
phased development there IS a question about how to address "Internal tnps" dunng mtermedlate years
Except for the 19 acres proposed to be deSignated and zoned Community Commercial, the remammg 80
plus acres Will be established as a node The Prelimmary Plan Illustration, which Will be Incorporated Into
a Master Plan for the entire Site, shows a number of pedestnan/blke connections from the proposed
residential portion In the north to the commercial portion m the south One way to address the "mternal
tnp" Issue IS to condltton 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
Fmally, there are additional transportation related Issues that Will be speCifically addressed m the required
Master Plan, but Will be conditioned as part of these appllcattons because approval of the Master Plan
reqUires consistency between the Metro Plan deSignation and the zonmg 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 tnp Issue and the tnp cap discussed
above, staff Will reqUire the followmg conditions of approval as part of the Master Plan Phase 1 - ( , "I
development Construction of the entire collector street from Marcola Road to V Street, and Construct, ~
of the mternal streets m the MUC and CC portions of the site
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As conditioned, these applicatIOns comply With Goal 12 because the applicant's traffic Impacts analys @
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) ~
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Condition of Aooroval #9
Submittal of prelIminary design plans with the Master Plan applIcation addressIng the proposed mlttgatlon
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 condltton 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 Aooroval #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 Aooroval #11
Submittal of a Master Plan applIcation that shows the entire length of the collector street from Marcola
Road to V Street beIng constr,!Icted as part of Phase 1
Condition of Aooroval #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 Aooroval #13
Submittal of a Master Plan applIcation that shows proposed connectivity between the residential and
commercial development areas
Staff Flndmq
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.-0.12-0.0.60(3)
GOAL 13 ENERGY CONSERVATION
"To conselVe energy . land and uses developed on the land shall be managed and controlled so
as to maXimIze the conselVatlon of all forms of energy, based upon sound economIC prmclples "
AoolIcant's SubmIttal
"Resoonse
The purpose of thIS Metro Plan DIagram Amendment (PAPA) applicatIon IS to re-deslgnate fand on the
subject sIte to 1) expand the amount of land deSignated for MedIum Density ReSidential, 2) re-deslgnate
the land currently deSignated for Campus Industnal to Light MedIUm Industnal and Mixed-Use
Commercial, 3) and re-deslgn"ted the Communrty Commercial land on the subject site to Mixed-Use
Commercial .
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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
Plannmg Goal 13 The City of Spnngfield adopted the Metro Plan (Ordmance No 6087) on May 17,
2004 This appltcatlOn does not amend any component of the Metro Plan that IS related to Goal 13 as
adopted by Spnngfield City council on May 17, 2004 Therefore, this PAPA appltcatlon IS consistent with
the Metro Plan and State-wide Plannmg Goal 13 "
Staffs 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
trrps 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 Industrral development to the east By reducing the frequency, number and duration of
automobile trrps 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 tYPlcallrnear 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 Fmdmo
These applications comply with Goal 13 because Implementation of Nodall)evelopment Area 7C will help
conserve energy
Goal 14 URBANIZATION
"To provide for an orderty and effiCient transltlo,n from rural to urban land use"
Aoollcant's SubmIttal
"Resoonse
All of the parcels affected by thiS applicatIOn are currently wlthm the Urban Growth Boundary and were
annexed mto the City of Spnngfield The annexatIOn was made m comPltance with an acknowledged
comprehensive plan and Implementmg ordmances, and established the avatlablltty of urban factlltles and
services Therefore the amendment IS consistent with State-Wide Plannmg Goal 14
Staffs Resoonse
Staff concurs with the applrcant'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-Sprrngfield Metropolitan Residential Lands and HOUSing Study, Polrcy
Recommendations Report (1999),
2 The Sprrngfield Commercial Lands Study (February 2000) Indicated that there IS a general shortage
of commercial land for future development, and
3 The Metropolrtan Industrral Lands Inventory Report (1992)
G,!a114 also encourages comp'act forms of development within Urban Growth Boundarres\~ ~ @ ~ G \TI
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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 subject 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 Fmdma
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, conseNe, enhance and mamtam the natural, scemc, hlstoncal, agncultural, economic
and recreatIOnal quaMles of lands along the Wlllamette River as the Wlllamette River Greenway"
Aoohcant's Submittal
Resoonse
"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 "
Staffs Resoonse
Staff concurs With the applicant's response
Staffs Fmdmo
Goal 15 IS not applicable to these applications because the subject site IS not located on or near the
Wlllamette River
Goals 16 through 19 - Estuanne Resources, Coastal Shorelands, Beaches and Dunes, and Ocean
Resources
Aoohcant's Submittal
"Resoonse
There are no coastal, ocean, estuanne, 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 Resoonse
Staff concurs With the applicant's response
Staffs Fmdmo
Goals 16 - 19 do not apply In Springfield because they pertain to coastal areas
Staffs Resoonse and Fmdmo
As conditioned, these applications comply With the applicable State-wide Planning Goals as discussed
above
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I SDC Section 7 070(3) U(b) AdoptIOn of the amendment must not make the Metro Plan mternally
Inconsistent 11
Aoohcant's Submittal
"Growth Management
Metro Plan, PolIcy 1 'The UGB and sequential development shatl contmue to be Implemented as
an essential means to achieve compact urban growth The provIsIon of atl urban services shatl be
concentrated mSlde the UGB '
ResDonse
The two parcels affected by this applicatIon are currently wrthm the Spnngfield portIOn of the Metropolitan
\
Urban Growth Boundary and have been mcorporated mto the City of Springfield The annexation was
made m compliance with an acknowledged comprehensIve plan and Implementmg ordmances, and
established the ava1labtltty of urban facilities and servIces
As such, the subject sIte IS proVldmg for compact urban growth and has the essentIal seTVIces ava1lable
for development As defined m the glossary of the Metro Plan, compact urban growth IS defined as
'The fitlmg m of vacant and underutl/Jzed tands m the UGB, as well as redevelopment mSlde the
UGB'
The PAPA will allow compact urban growth to occur on lands that are currently wlthm the UGB and
underut!l1zed for an urban area The development of the site Will provide needed commercIal employment
opportunrtles and also provide mediUm denSity residential development
Metro Plan, PolICY 24 'To accomplish the Fundamental Prmclple of compact urban growth
addressed m the text and on the Metro Plan DIagram, overatl metropotltan-wlde denSIty of new
residentIal construction, but necessanly each project, shatl average approximately SIX dwetlmg
Units per gross acre over the plannmg penod '
ReSDonse
The proposed development seeks to achIeve a denSity for all reSidentIally deSignated and zoned land of
approximately twelve dwellmg uMs 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 capltallzmg on publIC expenditures already
made for these servIces'
ResDonse
The subject sIte IS currently underdeveloped WIth access to readily ava1lable public faCilities and services
Approval of this proposal WIll capitalize on the publiC seTVIces and expenditures already made and
planned for m the Immediate area In short, the underdeveloped subject srte IS surtable for residentIal and
commercIal uses (specifically the proposed mixed resIdential and commercial area) and has acces.' .'n
publiC faCIlitIes and services -~~ @ ~ G \fl ~ \\\
Metro Plan SpeCIfic Elements \
A ResIdential Land Use and Housmg Element MAR 2 7 -'
ResDonse
By_,-.-:'
Wrth the adoption of the Eugene-Spnngfield Metropolitan Area General Plan 2004 Update (effectIVe
February 2006) the subject sIte's reSIdentially deSIgnated land was removed from the mventory of land
deSIgnated for low!dens/ty residential uses and was deSIgnated for mediUm-densrty resIdential uses (An
application concUlTent With this application proposes to "fix" the boundary of the reSIdentially deSIgnated
,
1-54
land) Therefore, the current MDR, Medium Density Residential zone IS m compltance wtlh the current
Metro Plan designation
Metro Plan, Policy A 8 'ReqUire development to pay the cost, as determined by the local
JunsdlctlOn, 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 appltcant shall conform wtlh City of Spnngfield reqUirements for paymg the fair cost of extendmg
publtc services and mfrastructure A vanety of housmg types are proposed as part of the Preltmmary Plan
illustration mcludmg small lot smgle-famrly detached, townhomes, apartments, senior cottages and a
congregate care faclltly
Metro Plan, PoliCY A 10 'Promote hIgher resldentlat denSIty inSIde the UGB that utIlIzes eXIsting
Infrastructure, Improves the effiCIency of publIC services and faCilitIes, and conserves rural
resource tands 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 ~'1 the metropolItan area by creating
more opportUnitIes for effectIVely deSIgned In-fill, redevelopment, and mIxed use while
conSIdering Impacts of Increased resIdential denSIty on hlstonc, eXIsting and future
neIghborhoods'
The proposed Preltmmary Plan illustration development Will promote higher denSity development by
mcreasmg the total supply of medium denSity deSignated and zoned land wlthm the metropolttan area
The appltcant IS proposmg to develop the reSidential portion of the site under the Spnngfield standards for
nodal development, With a mmlmum net denSity of 12 Units per acre In addition, the portion that IS
proposed as smgle-famrly development IS proposed under the standards for cluster development With
notably smaller lot sIzes and common open space proVided The mix of smgle-famlly small lot
development and multi-family development IS located near 'Potential Nodal Development Area 7C'
(TransPlan) and the appltcant IS proposmg to develop a mix of commercial uses that shall mclude
employment and commercial opportunities for future reSidents of the proposed development and eX/stm~
reSidents of the metropolttan area The proposed development IS located at the mtersectlon of North 28'
Street and Marcola Road approximately one-quarter mile east of the Marcola Road/North 19'" Street
mtersectlon With Highway 126, as such thiS proposed development IS m close proXimity to major
transportation routes and IS deSigned to be a walkable community that promotes a combmatlon of higher
denSities and employment and commercial opportunities
The proposed Prellmmary Plan illustration development effectively mtegrates the higher denSity
development With the eXlstmg neighborhoods m several ways Most Importantly the lowest denSity
development, smgle-famlly detached lots, IS located adjacent to the reSidential neighborhoods to the west
and north The higher denSity housmg (apartments, cottages and congregate care) IS located along the
east Side of the subject stle, and mternally north of the proposed commercial and mdustnal properties
The proposed development Will mmlmlze the disturbance to eXlstmg development while achlevmg 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 hOU~] fi!P(f;J cw.n~tYi1
Size, cost, and location' lJ;;. l!9 ~ U I.!l
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The applicant's proposed Prelimmary Plan illustration mcludes a vanety of housmg types mcludmg small-
lot smgle-famJly development, townhomes, apartments, semor cottages and congregate care The density
of development IS proposed wlthm the desired ranges for medium density residential and mcludes more
than 20% of common open space for use by the residents of the development The location of the
housmg IS central to the proposed nodal development area 7C (TransPlan) and shall provide a vanetyof
employment and commercial opportumtles for the eXlstmg 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 wJlI mclude a vanety of home ownership options on small smgle-
family lots and townhome lots The Size of the lots and the options for home ownership will mcrease the
supply of affordable ownership housmg m 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 Prelimmary Plan illustration mcreases the mix of uses by provldmg reSidential, commercial
(mam street, neighborhood retail, professional office) and mdustnal opportumtles, while also mfillmg m an
area of more typical suburban development The mcreased commercial and employment opportumtles
will benefit the eXlstmg reSidents and future reSidents of the development site
B Economic Element
ReSDonse
A detaJled analYSIS of Economic Element poliCies IS con tamed m the applicant's response State-wide
Plannmg Goal 9 - "Economic Development" Those responses are hereby mcorporated by reference
F TransportatIon Element
Resoonse
The project area IS currently served by Marcola Road, 21ih, and 31" streets Marcola Road, the southern
border of the subject Site, IS fully Improved and IS deSignated as a Mmor Artenal 2lih and 31" streets
border the eastern boundary of the subject site The City of Spnngfield's Conceptual Road Network Map
Identifies 2lih and 31st streets as the "31" Street Connector" The 2lih street portion of the 31" Street
Connector IS fully Improved and classified as a Collector street Thll1y-Flrst Street IS not fully Improved
and IS claSSified as a Collector street Currently, 31" street IS a two-lane asphalt paved road that does
not have gutters, curbs, or Sidewalks There IS a City of Spnngfield 10' utility and Sidewalk easement on
the west Side of 31" street to facilitate road Improvements m the future
Additional mformatlon m thiS statement's response to State-wide Plannmg Goal 12 - "TransportatIOn" IS
hereby referenced and mcorporated
Metro Plan, PoliCY F 1 'Apply the nodal development strategy In areas selected by each
Junsdlctlon that have Identified potentIal for thIS type of transportation-efficient land use pattern '
r -
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Metro Plan, PoliCY F 13 'Support transportatIOn strategIes that enhance neighborhood livabl/"p
~
Metro Plan, Policy.F 14 Addrass the mobJlIty and safety needs of motonsts, transit users, bicyclists, @
pedestnans, and the needs of emergency vehicles when plannmg and constructmg roadway system
Improvements ' ~
r =' ==i
Resoonse
The subject site IS IdentJfied m TransPlan as "Potential Nodal Development Area" 7C The applicant
seeks to develop the maJOnfy of the site under the nodal standards as detailed m the Spnngfield
Development Code The applicant's proposed development wJlI mclude residential, mdustnal and
commercial development creatmg a mix of uses that complements the nodal standards
"I
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Metro Plan, Policy F 26 Provide for a pedestnan environment that IS well mtegrated 'do/! adjacent land
uses and IS designed to enhance the safety, comfort, and convenience of walkmg ,
,
Resoonse
The proposed development shall be served by the eXlstmg streets (Marcola Road, North 2B'" Street,
North 31't Street) and future streets mcludmg 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, Poltcy F 36 'ReqUire that new development pay for ItS capacity Impact on the
transportation system
ResDonse
Based on the Traffic Impact AnalysIs, the PAPA will not have a capacity Impact upon the transportation
system Please see Attachment 1, T1A for more mformatlon
A detailed analysIs of the PAPA's conststency with the State Transportation Plannmg Rule, OAR DIVIsion
12, 660-012-0000 et seq, (TPR) IS contamed m the applicant's response State-wide Planning Goal 12 -
"TransportatIOn" Those responses are hereby mcorporated 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 mtemally mcons/stent
G Publtc Far.ltt,es and SeNlces Element
Metro Plan, Policy G 1 . Extend the mmlmum level and full range of key urban facilities and
seNlces m an orderly and effiCient manner consistent with the growth management policies m
Chapter II-B, relevant policies m thiS chapter, and other Metro Plan policies'
ResDonse
The two parcels affected by thiS application are currently wlthm the Urban Growth Boundary and were
annexed mto the City of Spnngfield The annexation was made m compliance With an acknowledged
comprehenSive plan and Implementmg ordmances, and established the availability of urban faCilities and
services A detailed analYSIS of the availability of those selVlces IS contamed m the applicant's response
State-wide Planning Goal 11 - "Public Facilities and SelVlces " Those responses are hereby
mcorporated by reference
Metro Plan, PoliCY G 5 'ConSider wellhead protection areas and surface water supplies when
plannmg storm water facllttles '
ResDonse
A stormwater management plan shall be created dunng the master plan process SpeCial emphasts Will
be placed upon the wellhead protection area and surface water supplies when plannmg storm water
facilities See Exhibits 8 and 9 for more mformatlon
H Parks and Recreation Element
ResDonse
The changes proposed by thiS applicatIOn will have no Impact on any recreation area, facility or
opportunity that has been mventorled and deSignated by the Metro Plan or any relevant facMy plan
regardmg the City's recreational needs The recreational needs of the community are adequately met by
the eX/stmg and planned facilities enumerated m the Willamalane 20-year Park and Recreation
ComprehenSIVe Plan, 2004 and other associated documents A detailed analYSIS of the subject site m
relatIOn to the vanous parks and recreation system studies, mventones, refinement plans, and faCilities
plans tS con tamed m the applicant's response State-wide Plannmg Goal 8 - 'Recreation' Those
responses are hereby mcorporated 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 mtemally mcons/stent
f-57
I Hlstonc PreservatIon Element
Resnonse
The changes proposed by this application will have nO Impact On any hlstonc resource that has been
mventoned and designated by the Metro Plan or any relevant facility plan or mventory regardmg the City'S
hlstonc resources With regard to the HIStOnC Preservation Element of the Metro Plan, the City can fmd
that the proposed PAPA will not make the Metro Plan mternally mconslstent
J Energy Element
Metro Plan, Goal 1 Maximize the conservation and effiCient utJllzatlon of all types of energy
Resoonse
The proposed PAPA and subsequent development of the site will encourage conservation and effiCient
utll1zatlon of energy by a concentration of employment, services and reSidences On the Site, and enablmg
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 heatmg and coolmg, m balance
WIth the reqUIrements of other plannIng polICIes, and'
ResDonse
The appl1cant shall design future development accordmg the standards of the Spnngfield Development
Code mcludes all standards relevant to solar onentatlon
Metro Plan, Potlcy J 8 'CommercIal, resldentlat, and rlU'.reatlOnalland uses shall be mtegrated to
the greatest extent pOSSIble, balanced WIth all plannmg polICIes to reduce travet dIstances,
optImIze reuse of waste heat, and optImIze potentIal on-sIte energy generatIon'
ResoonsfL
The requested approval of the PAPA proposed herem, If approved, Will enable the subsequent zone
changes and development of a master planned mixed use development that shall proVide employment,
services and residentIal opportumtles (see Prel1mmary Plan illustratIon ) The proposed development
enVISionS a senes of eight (8) Villages that mclude maIO street retail, neIghborhood retail, general retail
and resIdential uses (smgle-famlly detached, townhomes, apartments, semor cottages and congregate
care) Workers and reSIdents Will have the option to obtam dmmg, shoppmg, and other commerCIal
amemtles less than a mile from the subject site consistent With PolICY J 8's mandate to balance all
planmng polICIes to reduce travel distance EXlstmg residentIal neighborhoods are adjacent to the subject
site The presence of schools and the Willama/ane Park to the north proVides prOXImity to recreational
land uses
Because the amendments facilitate development of an mtegrated master planned mIxed-use
development With a mIx of commerCial, reSIdentIal and adjacent mdustnal zomng near recreatIonal land
uses (all wlthm reasonable walkmg distance, whIch allows mIXIng of uses and reduces travel distances) It
IS ConSistent with thIS pol1cy (see Prel1mmary Plan illUStratiOn for more mformatlon)
K CItIzen Involvement Element
Metro Ptan, Goal 'Contmue to develop, mamtam, and refine programs and procedures that
maxImIze the opportUnIty for meanmgful, ongomg CItIzen mvolvement m the communIty's (
plannmg and plannmg ImplementatIon processes consIstent WIth mandatory stateWIde plannIrI! ~
standards'
E:J
Response As noted 10 appl1cant's findmgs regardmg State-wide Plannmg Goal 1, Citizen Involvement, = <-
the Clly's acknowledged program for citizen mvolvement prOVides clllzens the opportumty to revIew an, f~ <N
0::
make recommendations 10 wntten and oral testimonY On the proposed PAPA, ConSIstent with Goal 1 T e <(
action proposed IS ConSistent v./Ith and does not amend the CitIzen mvolvement element of the Metro PI e::'I :::;;;
(=-~
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Aspects of the Metro Plan that have not been discussed wlthm this applicatIon WIll be deal Byth rlllnn~
future development proposals mcludmg site review and conditIonal use permit"
..
!';taffs ReSDonse
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 mdustnal uses under procedures which
clearly define the condItIons under whIch such uses shall be permItted and which (a) preserve the
SUitabIlity of the affected areas for their primary uses, (b) assure compatibilIty, and (c) conSider the
potential for mcreased traffic congestion"
These applications address "Marcola Meadows", west of 28th/31" Streets The TransPlan Potenlial Nodal
Development Areas Map shows proposed Node 7C Includes areas east of 28th/31" 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 Resldenlial ThiS area IS fully
developed The pOint IS that the "greater area" of Proposed Nodal Development Area 7C Will comply With
Policy B 23 by proViding "for Iimrted mixing of commerCial and Industrial uses while preserving the area for
industrial uses"
~--
The definition of nodal development area IS prOVided In the Metro Plan
"Nodal Development Area (Node) Areas IdentIfied as nodal development areas m 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 mcrease concentratIOns of population and
employment m well defined areas WIth good transIt servIce, a mIx of dIVerse and compatible land
uses, and publIC and private Improvements deSIgned to be pedestrian and transit Oriented
Fundamental characteristics of nodal development reqUire
. DeSIgn elements that support pedestrian environments and encourage transIt use and
blcyclmg,
. A transIt stop whIch IS wlthm walkmg dIstance (generally wlthm X mIle) of anywhere m the
node,
. Mixed uses so that servIces are avaIlable wlthm watkmg dIstance,
. Public spaces, such as parks, publiC and private open space, pUblIC faCilities, that can be
reached WIthout drlvmg, and
. A mIx of housmg types and resldenttal denSities that achIeve an overall net denSIty of at
least 12 dwellmg 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 Preliminary
Plan illustration, an example of what the reqUired Master Plan applical1on, 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 '\fIp duration, and lower systems costs The proposal will limit air pollulion
and urban sprawl The proposed applications are consistent With the Growth Management PrinCiples of the
Plan that encourage compact growth and carnes out the Intent of the Transportation Element
"
f-59
2 Whether the PAPA makes the Metro Plan Internally Inconsistent
The purpose of the Metro Plan's economic element IS to Implement State-wide Planmng Goal g" to
dIVersify and Improve the economy of the state In order to grow the region's economy It IS essentJal
that the supply of land m each zonmg designatIon mclude not only sites sufficIent m size to
accommodate the needs of the commercial or mdustnat operatIOns (mcludmg expansIon), but also
mcludes sites which are attractIve from the standpomt of esthetJcs, transportatJon 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
"S 6 Increase the amount of undeveloped land zoned for light mdustnal and commercial uses
correlatmg the effectIve supply m tenns of sUItability and avaIlabIlity With the projectJons of
demand m
"S 12 Discourage future Metropolitan Area General Plan Amendments that would change
development-ready mdustnallands (sItes defined as short-term In the Metropolitan Industnal Lands
SpeCIal Study, 1991) to non-mdustnal designatIOns"
In the response to Goal g, the applicant has demonstrated that the SCLS shows a shortage of commerCial
land and the MILlR shows a surplus of industrial land In Springfield
Under Policy B 6, the supply 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 TRble 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 li9ht Industnal use has gone Into the Gateway CI Dlstnct
There has been no CI development applications ever submitted for the subject site Redeslgnatlon and
rezomng were Ident1fJed as methods to Increase the supply of commercial land In the SCLS Any rezomng
essentially reduces other land use Inventones, espeCially the CI Dlstnct Approval of these applications Will
exchange an Industnal development ready site for a predominantly commerCial development ready site In
light of any more up-to-date commerclali1ndustnalland 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 Commumty CommerCial
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 Industnal development east of
281h/31" Streets that compnse Proposed Nodal Development Area 7C
Under Policy B 12, staff contends the "discourage" language does not contain an outnght prohibition on
changing development ready Industnal sites to non-Industnal (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 Industnally zoned land and the defiCit of commerCial
land there IS not a correlation between eXisting supply and demand for the two categones The "correlation
policy" conflicts With Policy B 12 which discourages rezomng development ready Industnal parcels to other
designations Given the defiCit of commercial lands In the City, st?ff contends the poliCY of correlating
eXisting supply With demand IS more Important than the poliCY of not converting development ready light
medium industrial sites to other uses
The requirement of thiS cnterlon 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 recogmzed conflicts In the Metro Plan, the proper inqUiry IS
whether on balance the most relevant of the Plan poliCies support the Metro Plan Dlagral:~'~"'ft! n
The applicant submitted findings the vanous Metro Plan poliCies Cited above and In respor ~ tg;~I\i U
MAR 2 7
illlEJ
1-60
By
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 condllions 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 Industnalland, the Planning Commission and City Council must make a choice The basIs of
this choice IS _ Will approval of these applications be In the best Interests of Spnngfield's cllizens
Staff's FmdmCl
The text of the Metro Plan, specifically the poliCies, supports this crltenon 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
I 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 12030(3) lists "Zoning Map amendment-cnterla of approval (a) ConsIstency WIth
applicable Metro Plan polICIes and the Metro Plan dIagram, (b) ConsIstency WIth applIcable
Refinement Plans, Plan DIstrict maps, Conceptual Devetopment Plans and functlonat plans, and
(c) The property IS presentty provIded WIth adequate publIC faCIlItIes, servIces and transportatIOn
networks to support the use, or these faCIlItIes, servIces and transportatIon networks are planned
to be prOVIded concurrently WIth the development of the property (d) LegIslatIVe Zoning Map
amendments that Involve a Metro Plan DIagram amendment shall 1 Meet the approval criteria
speCIfIed In ArtIcle 7 of thIS Code, and 2 Comply wIth Oregon AdmInistratIve Rule (OAR) 660-012-
0060, where applIcable"
I SDC SectIon 12 030(3)(a)" ConsIstency WIth apptlcable Metro Plan polICIes and the Metro Plan
dIagram, 11
Aoohcant's Submittal
"ReSDonse
The adopted Metro Plan 'Land Use Diagram' (2004 update) shows three land use deSignatIons
on the subject sIte Campus Industnal, 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 appl1catlon If the concurrent amendment to the
Metro Plan diagram changing the allocation of land use deSignations for the property IS approved, the
proposed Zonmg Map Amendment WIll be consIstent WIth and Implement the Metro Plan 'Land Use
Diagram n
Note The applicant Cited the same Metro Plan poliCies In the response to thiS cnterlon 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
,
lID) ~ @ ~ Q \TI ~ ~I
1liJ MAR 27 . JI
By
.--
f-61
,
!>taffs Resoonse and Fmdma .
The applicant has cited "consistency with Metro Plan policies and the Metro Plan diagram" m the
response to SDC Section 7 070(3)(b), above Staff found that the applicant complied With that cntenon
and therefore, complies With cntenon 12 030(3)(a)
I SDC Section 12 030(3)(b) "ConsIstency With applicable Refinement Plans, Plan Dlstnct maps,
Conceptual Development Plans and functional plans, and"
Aoolicant's Submittal
"ResDonse
A Conceptual Development Plan (COP), previously created for the 56 acres of eX/stmg Campus Industnal
(CI) zomng on the subject site per SDC 21020, was approved by the Clly of Spnngfield m 1999 (file
number 98-02-47) SDC 21 020 states that 'A Master Plan shall comply With any appltcable
approved Conceptual Development Plan or upon approval of a Master Plan or Site Plan for the
entire CI Dlstnct, the Master Plan or SIte ptan may supplant and take precedence over an
approved Conceptual Development Plan' ThiS proposed zone change, 1f approved, shall remove the
CI zomng from the subject site and a forthcommg Master Plan application [see Attachment - Prelimmary
Plan illustration] for the entire subject site (mcludmg all land wlthm the previously adopted COP)
consIstent With these amendments shall be submitted to the CIty, as such, the previously approved COP
Will be supplanted by the forthcommg Master Plan per SDC 37 010 et seq As such a findmg of
consistency WIth the conditIOns of the previously adopted COP (98-02-47) IS not applicable to thiS
proposal "
~
Staffs Resoonse
The subject site IS not wlthm an adopted refinement plan or plan dlstnct The applicant cites the 1999
Conceptual Development Plan for the CI portion of the property Staff concurs With the applicant's
submittal concermng that plan There are no other plans speCific to thiS property
Staffs Fmdma
These applications comply With SDC Section 12 030(3)(b) because there are no applicable refinement
plans or plan dlstncts 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 applicalions
Section 12 030(3)(c) "The property IS presently prOVided With adequate pubtlc 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"
Aoolicant's Submittal
"Response
The diSCUSSIon of compliance With StateWIde Plannmg Goal 11 - 'Public Facilities and
SelVlces,' and Goal 12 - TransportatIOn' m the findmgs regardmg the StateWide Plannmg
Goals [see the applicant's response to SDC 7 070(3)(a) that] are mcorporated herem by reference With
the findmgs established and referenced herem, the proposal complies With thiS cntenon
Staff s Resoonse
Staff concurs With the applicant's statement Cntenon (c) IS also addressed m staffs r
11 and 12, under cntenon 7 070(3)(a)
r2 ~ ~O~IS\!J ~ ~
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J
By_
.....
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Staffs FmdmQ
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"
Staffs Resoonse and Fmdmo .
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 11 Metro Plan amendment, and the response
to State-wide Planning Goal 12 In SDC Sechon 7 030(3)(a) In particular
I XI CONCLUSION. RECOMMENDATION OF STAFF AND RE.CAP OF CONDITIONS
The Metro Plan's economic element beginS with a background d]scusslon of the U a) a dechne m the
lumber and wood products mdustry as a source of employment, (b) hmlted mcrease m
employment mother manufacturmg actJV]tles, (c) dIversIfication of the non-manufactunng
segments of the local economy, pnmanly m trade, services, finance, msurance, and real estate,
and (d) the development of this metropohtan area as a regIonal trade and service center servmg
. southern and eastern Oregon n
The Spec]al L]ght Industrlal/Campus Industrial deSignation was adopted to assist In the dlvers]ficatlon of
the metro area's economy In the translt]on after the wood products Industry decline Staffs discussion In
Goal 9 deta]ls the history of thiS deSignation and zoning district However, change has rap]dly 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 technolog]es" 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 ]S only one manufacturing facility In the Gateway CI, Springfield's other CI
District If these applications are approved, there Will st]1I be over 100 acres of CI zoned and deSignated
vacant land In the Gateway CI D]strlct
Approval of these applications Will ]mplement TransPlan Nodal Development area 7C, resulting In a
master planned commerc]al/res]dentJal mixed use development for the entire site
In the Executive Summary, staff stated there were two primary Goals g and 10 that needed to be
addressed Staff contends that, as condlt]oned, these applications addressed both Goals and all other
applicable criteria of approval
However, In making their decisions, the Planning CommiSSion and the City Counc]1 should consider 1)
Lacking an updated commercial and Industrial land study, W]1l the City be better served by converting
Campus Industrial land to Commercial and Mult]-family ResldentJal, and 2) W]II Springfield's clhzens,
espeCially the neighbors, be assured that a "quality" development W]1l be constructed over time
Re-cao of CondltJons of Aooroval .
CondltJon of Aooroval #1
"" ,"bm."" '"' 'PO'"" 0" M'.~ PI," 'pp'.,boo poo, '" '"y ''"''"moo',oo '~~.@ a" u I!l_~ ]
MAR 2 7
1'-63
By
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 prDcess
The Metro Plan diagram and ZOning Map amendment applicatlDns are concurrent SDC SectlDn 12 040
gives the City authority to add conditions" as may be reasDnably necessary m order tD allow the
Zonmg 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 Aooroval #2
Submittal of documentation from the Department of State Lands andlor 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 Aooroval #3
Submittal of a Master plan application that Incorporates the relocation Df the eXisting drainage ditch and
conversion tD 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 IncorpDrated IntD propDsed Master Plan Phase 1
development
CondItIOn Df AoorDval #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 Aooroval #5
Submittal of a Master Plan application that addresses the relatlDnshlp of the proposed development tD
Wlllamalane's future park on the north side of the EWEB Bike Path and an explanation Df any
cDordlnatlon efforts with Wlllamalane cDncernlng the timing and development of the future park
Condition of Aooroval #6
Submittal Df a Master Plan application that addresses coordlnatlDn with EWEB to determine If any
easements are required In order to cross the EWEB Bike Path to access the future park
CondItion of Aooroval #7
Submittal of a Master Plan applicatlDn that shDws the propDsed home Improvement center bUilding
deSign similar to the eXisting bUilding In Scottsdale, Arizona or a bUilding deSign that compiles With the
current bUilding deSign standards In SDC Article 21
Condition of Aooroval #8
Submittal of a Master Plan application that demonstrates that residential development wllI-,,~~,.'" ~l11i ~]
dwelling Units per net acre ~~ @ ~ G \!J lS -}
~ MAR 2 7
I
By
J
1-64
Condition of Aooroval #9
Submittal of preliminary design plans with the Master Plan application addressing the proposed mll1gatlon
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-
Spnngfield Highway intersection The Intent of this condition IS to have the applicant demonstrate to
OOOT that the proposed mitigation IS feasible from an englneenng perspective and will be constructed on
a schedule that IS acceptable to OOOT Provided that construction of the proposed mitigation IS
determined to be feasible, then dunng Master Plan review and approval a condition shall be applied
reqUlnng the mitigation to be accomplished pnor to the temporary occupancy of any uses In Phase 1 of
the development
Condition of Aooroval #10
Submittal of a Master Plan application that Incorporates a "Development Phasing Plan" The Intent of this
plan IS to address the "Internal tnp" Issue by reqUlnng a certain percentage of the resldenl1al 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 4G do not exceed the IndIVIdual caps for these uses
CondItion of Aooroval #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 Aooroval #12
Submittal of a Master Plan application that shows the construction of all streets serving the GG and MUG
portions of the subject site being constructed as part of Phase 1
Condition of Aooroval #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 cntena
of approval listed In SOC Sections 7 030 and 12030
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
]~@~OW~]
MAR 2 7
By
T-65
BEFORE THE PLANNING COMMISSION
OF THE CITY OF SPRINGFIELD, OREGON
ORDER AND RECOMMENDATION FOR
A METRO PLAN DIAGRAM AMENDMENT ]
AND A SPRINGFIELD ZONING MAP AMENDMENT ]
CASE NUMBER LRP 2006..Q0027
CASE NUMBER ZON 2006-00054
NATURE OF THE APPLICATIONS
This IS a consolidated application for the above referenced case numbers The applicant IS proposing to
amend the Metro Plan diagram from Campus Industnal (CI) to Commercial/Nodal Development Area
(NDA), Community Commercial (CC) and Medium Density ReSidential (MDR)/NDA, and to amend the
Springfield ZOning Map from CI to CC, Mixed Use Commercial (MUC) and MDR The applicant Intends to
obtain the proper Metro Plan designations and zOning to allow the submittal and approval of the
appropnate applications (Including, but not limited to Master Plan, SubdiVIsion and Site Plan Review) In
order to construct a phased mixed-use residential and commercial development with nodal attributes
The proposed development will Include design elements that support pedestnan enVIronments and
encourage transit use, walking and bicycling, a transit stop which IS within walking distance (generally Y.
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
dnvlng, and a mix of housing types and reSidential denSities that achieve an overall net density of at lease
12 Units per net acre
1 The above referenced applications have been ac,cepted as complete
2 The applicalions were initiated and submitted In accordance with Section 3 050 of the Spnngfield
Development Code Timely and sufficient nolice of the public heanng, pursuant to Section 14 030 of
the Spnngfield Development Code, has been prOVided
3 On March 27, 2007 the Planning Commission held a public heanng on the proposed amendments
The Development Services Department staff notes and recommendation together with the oral
testimony and wntten subm Ittals of the persons testifying at that hearing have been conSidered and
are part of the record of this proceeding
CONCLUSION
On the basIs of this record, the proposed amendments are consistent with the cntena of SDC Sections
7 030 and 12030 This general finding IS supported by the speCific findings of fact and conclUSion In the
Staff Report and Findings
ORDER/RECOMMENDATION
It IS ORDERED by the Spnngfield Planning Commission that approval of CASE NUMBER LRP 2006-
00027, and CASE NUMBER ZON 2006..Q0054, be GRANTED and a RECOMMENDATION for approval
forwarded to the Springfield City CounCil
Planning Commission Challperson
'iO)~@~G\TI~]
\ill MAR 2 7 )
ATTEST
AYES
NOES
ABSENT'
ABSTAIN
By
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ATTACHMENT 2
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MAR 2 7
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Low DensIty Residential Mixed Use Commercial
MIxed Use Residential Nleghborhood Commercial
LJght Medium lndustnal
W Campus Industnal
III Heavy lndustnal
a Public Land & Open Space
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Mlscellaneou (
Boundanes ~ ~
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Parcels
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Leaend
Zonmg Dlstnct Boundanes
HIgh DenSity Residential _ Community Commercial
Medium DenSIty Residential I i I j II ] MajOr Retail Commercial
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The Villages at Marcola Meadows
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1200
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2-6
ATTACHMENT 3
Legal Description for the Zoning map Amendment
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ATTACHMENT
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EXHIBIT 1
K & D ENGINEERING, Inc.
Engmeers . Planners. Surveyors
Legal descriptIOn
For
"Marcola Meadows" Comp Plan and Zone Change
\
Two (2) Parcels ofland located ill Spungfield, Oregon that az e more paz11cularly
descnbed as follows G ~ @ ~ G IJ] ~ ~
~ MM21 I
By_
-=-=- ..
Parcell
Beg1nn1ng at a po1nt on the North marg~n of Marcola Road, sa~d po1Dt be1ng North 89
57' 30R East 2611 60 feet and North 00 021 OQ. West 45 00 feet from the Southwest
corner of the Felix Scott Jr D L C No 51 1D Townsh1p 17 South, Range 3 West of the
W111amette Mer1d1an. thence along Lhe North marg1D of Marcola Road South 89 571 30u
West 1419 22 feeL to the Southeast corner of parcel 1 of Land Part1t1on Plat No 94-
P0191, thence leav1ng the North marg1ll of Marcola Road and runn1ng along the East
boundary of said parcell and the Northerly extens10n thereof North 00. 02' ooa West
516 00 feet to a p01nt on the South boundary of NICOLE PARK as platted and recorded 1n
File 74, Slides 30-33 of the Lane County Oregon Plat Records, thence along the South
boundary of sa~d NICOLE PARK NorLh 89 571 30P East 99 62 feet to the Southeast corner
of sa~d NICOLE PARK, thence along the East boundary of said NICOLE PARK North 00 021
00" West 259 82 feet to the Northeast corner of Ba~d NICOLE PARK, thence along the
North boundary of Ba~d NICOLB PARK South 89 58' 00" West 6 20 feet to the southeast
corner of LOCH LeMOND TERRACE FIRST ADDITION. as platted and recorded 1n Book 46, ~age
20 of lhe Lane County Oregon Plat Records, thence along the East boundary of sa~d LOCH
LOMOND 'lERRACE FIRST ADDITION North 00 021 OOM West 112 BB feet to the Southwest
corner of AUSTIN pARK SOUTH as platted and recorded ~n F1le 74, Sl~des 132-134 of the
Lane County Plat Records, thence along the South boundary of aa~d AOSTIN PARK South
North 09 5B' 00. East 260 00 feet to the Southeast corner of suid AUSTIN PARK South
thence along the East boundary of said AUSTIN PARK South North 00 021 00" West 909 69
feet to the Northeast corner of sa~d Aust~n Park South, said po~nt be~ng on the South
boundary of thaL certa~n tract of land descr~bed ~n a deed recorded July 31, 1941, Ln
Book 359, Page 265 of the Lane County Oregon Deed Records, thence along the South
boundary of Sdld last deBcr~bed tract North 79 411 54R Bast 10B3 15 feet to the
~ntersection of the South l~ne of the last described tract and the East l~ne of that
certa~n tract of land conveyed to R H Plerce and Elizabeth C Pierce and recorded In
Book 238, Page 464 of the Lane County Oregon Deed Records, thence along the East 11ne
of sa~d last pescrj~ed traLt South 00 02' OOP Cast 1991 28 feet to the po~t of
beg~nn~ng, all ~n Lane County, Oregon
Page 1 of 2
276 N W HIckory Street' POBox 725' Albany, OR 97321' (541) 928-2583' Fax (541) 967-3458
3-3
K & D ENGINEERING, Inc.
Engtlleers · Planners · Surveyors
ParcelZ
Beg~nn~ng at a pD~nt ~n the center of County Road No 753. 3470 24 teet South and
13~9 9 feet East of the Northwebt corner of the Fel~x Scott Donat~on land Cla~m No
82, 10 Townsh~p 17 South, Range 2 West of the w111amette Mer1d1an, and be~ng 866 feet
South of the Southeast ~orner of trnct of land conveyed by The Travelers Insurance
Company to R D Kercher by deed recorded 1D Book 189, Page 260, Lane County Oregon
Deed Records, thence West 1310 feet to a p01nt 15 links East at the West I1ne of the
Fe11x Scott Donat1on Land Claim No 82, Not1f1cat1on No 3255, 10 Township 17 South,
Range 2 West of the W111amette Mer1d1an, and runn1ng Lhence South parallel w1th and 15
l~ks d1stant from aa1d Weal 110e of Ba~d Donat~on Land Cla~m a d~stance of 2304 76
feet to a point 15 11nks East of the Southwest corner of Bald Donat~pn Land Cla1m,
thence East follow~ng along the center l1ne of County Road No 278 a dlstance of 1310
feet to a pOint 10 the center of Ba~d County Road No 278 due South of the place of
beg~1ng, thence North following the center l~ne of sa~d County Road No 753 to the
po~nt of beg~~ng, all Ln Lane County, Oregon,
EXCByr the rlght of way of the Cugene-Wendllng Branch of the Southern PdClflC
Railroad, ~_
ALSO EXCEPT thaL porL~on described 1n deed to rhe Clty of Eugene, recorded in
Book 359, Page 285, Lane County Oregon Deed Records,
ALSO EXCEPT beg1Dnlng at a pOlnt which 18 1589 47 feet south and 1327 33 feet
East of the Southwest corner of Sectlon 19, Township 17 South, Range 2 West,
Wl11amette Meridian. Lane County, Oregon, sa1d po~nt also be~ng oppos~te and
20 feet Easterly from Station 39+59 43 pas T , sald Station being In the
center I1ne of the old route of County Road No 142-5 (formerly 0753), thenc~
South 0 11' West 183 75 feet Lo the lntersect~on w~th the Northerly Railroad
Rlght of Way line, thence South 84" 45' West 117 33 feet, thence South 79 30.
West 48 37 feet to lhe ~ntersect~on of sa1d Ra11road R1ght of Way I1ne With
the Southerly R1ght of Way line of the relocated sa1d County Road No 742-5,
thence along the arc of a 316 40 foot rad~us curve left (the chord of which
bears North 39- 031 35- East '61 83 feet) a dlstance of 269 94 feet to the
place of beg1nning, in Lane County, OregoD,
AJ~SO EXCEPT that port1on described 1n deed to Lane County recorded October 19,
1955, Recept10n No 68852, !~ne County Oregon Deed Records,
ALSO EXCEPT that port~on described 1n deed to Lane County recorded January 20,
1986, Recept10n No 86Q2217, Lane County Off~c1al Records,
ALSO EXCEPT tr~t portion descr~bed 1n that Deed Lo W~llamalane Park and
Recreat~on Dlstrlct recorded December 4. 1992, Recept~on No 9268749, and
Correctlon Deed recorded February 9, 1993, RecepLion No 9308469, Lane County
Offlc~al Records;
ALSO EXCBPT thut port1on described in Exhib~t A of that Deed Lo the Clty of
Sprlngf~eld, recorded September 22, 1993, Receptlon No 9360016, Lane County
Offlclal Records
ALSO EXCEPT Marcola Road Indubtrlal Park,
S11des 897, 898 and 899, Lane County Plat
as platted and recorded lD File 75,
Records, Lane County, Oregon
~~@~~~~w
\~ MfI,R '21 ~
B~ - - --:::::
Page 2 of2
276 N W HIckory Street. POBox 725' Albany, OR 97321 . (541) 92&-2583' Fax (541) 967-3458
.
3-4
ATTACHMENT 4
The Preliminary Plan illustration (a rendering of the proposed Master Plan)
~ ~ @ ~ 0 ill ~ -:'1
MAR 2 7 -
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ATTACHMENT
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THE VILLAGES AT MARcOLA MEADOWS
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RESIDENTIAL VILLAGES
OAK PRARIE HOMES
NUMBER OF' NET ARE"
HOUEB (ACRES)
111Z 114
NET DENSITY
(UN1TSlACREI
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,...c:c,... 0 r-'lLLOW CREEK TOWN HOMES
...-'" NUMBER Of NET ARE" NETDENSfTY
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! 0 CAMA9 MEADOW APARTMENT HOMES
NUMBER OF HElMEA NET DENSITY
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. 0 ASHWOOD COTTAGES SENIOR LMNG
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i NWBER OF NET AREA NET DENSITY
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COMMERCIAL VILLAGES
BUltDINO ,""".. IllUSTRA.TM
, NUMBER AREA1SFI BLOO AREAjSFI PAAAlt'fO
~ ALDER PLAZA PROFESSIONAL OFFICE
...,., 71700 10100 "
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REQUIRED 1111
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THE VILLAGES
AT MARCOlA MEADOWS
Be SPRINGFIELD LLC
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ALDER PL.AZA NEIGHBORHOOD RETAil
NRI 111600 15400 17
NR2 55200 1DllDD 3D
NR3 IlDJOD 17400 63
NR-4 Z5llDD 4IlOO 111
NR ~ JD 100 31loo 12
NR.t:l46OO!i9OO 18
NR7 110000 311000 1011
NAil 144000 24800 74
REQUIRED 321
PRO\/lDED354
AlDER PLAZA GENERAl RETAIl".
GRI 1142000 171000 REQUlREDS13
PROVlOEDII21
ALOER PLAZA M.A-IN STREET RF:T\ll
MSR1 U10D 1300
MSR2 II170D 7.eoo
MSR3 1D45OD U500
M5R... 31400 7800
M5R.o 301011 5200
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IllUSTRATION
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Haln Stn.1!t at Harcob. Headows 11 a
y'bunt bultllnl pedestr1an frIendly
shopplnl envtronmenL Front bodes are
Irthlte<<~11y an:lnbud with windows
anaplel _n mounted IIJhU and h;u1JlnJ
11Jns Tall crownlnJ street treel provide In
IntImate mle WIde sldew.allu are furnllhed
with attr.lctlve planterl, benchu Ind water
features W\ndqw shopplnlls encoun.led
sman terrllCel and ptuas are looted on
bulldlnl come" The backsides of the retail
building' also have windows and f.a~de U"
ttcubtlon, and provlde a Itcondary enU1lOCe
from mill parklrlJ area Into the shoPI Walk
ways from residential areas conne<< directly
Into the MaIn Street area
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ALDER PLAZA
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COMMUNITY RETAIL
The street profif, sumlenly continues from Haln SUUl: to the community reall V-e::l Yltth
bulldlnls lIn1nR the mellL f";(rkI... I, not all~d betWeen bulldlnp Ind Hartin Boulllvud but I. 10-
ClItlld either at the back or the sides of the rea.11 bulldiflll Bul1d11ll bt;ades Irlartlculated on 1.11 vlsl
ble. Ildes Indudlnlllq Willow Creek. BuUdnll that border on W1now Creek m.VI outdoor Intlo.
arus lffiIt overlook this centnl areen area
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GENERAL RETAIL
The llnenl retail buIIdlnl of Alder lhoppln. pm has an armltllcnnlly artlcubted b.~dl! and I brll!
ptrcenClal! oI,roundnoor windows Thus the bulldlnl proYldel Interest at the pedestTt.m s(ale To
lether with the buk sides of Main Street shop. and thl nel,hborhood ...,,0.1 bulldln., mlllenenl
rll2ll fa~de crenes a durfy deOoed, pede.trill" scaled edle :u-oatd I carefl.lny de'5llned par1d1\l
area This parldOl pIau NS fl1tered .h:ad. provided by the airy crowns 01 Alh and Alder tree. In
addition the parkJ"llru Is IpUb11y divided In IU'dom by blOlwatU with natlv, vau,. and flo_"11;I
wedand planu ~ronl the lenenl flail bulldln. I drive II delllned ;II I pedeltrb.nlrLendly street
The drive: hoas side walks on either side _II' . ' 1 -1, (
and canopy trees with airy crovms At ~'
the back of the Kenenl flail buildln.
thl loadtna un Is entirety Itreened
from the nelchbomoods to the north
by In ellht foot hl(h wall and con
toured banks or Willow Creek
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oriented OI!lzborhood In a se~mlelS and
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round Alder pm Ilona Harcoll Road Ind
HanlnSoulevard
Parklnll.n.verIOCltedbe~enthese
weets Ind the nellhorhood retiA build
Inls Instead buldlnlS Ire located Ilonl thl
streets Ind dlnml the lhopplnl elM-
roment. Comer, at drlvlways Ind rOlds
arellso vertla.lly defined by abulldlnl In
Iddltlon ever....een shrubl ;and ornamena.I
IranlS Icreen parklnl areas J.lonl Harcob
ROld Outdoor satlne areu overiooklnl
Willow Creek are Incorpor.r.ted where
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MARCOLA MEADOWS
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MARCOlA MEADOWS
ALDER PLAZA
NEIGHBORHOOD RETAIL
::" -_:.- --~-
~mq SATRE
.::.j.~lIi""U<l.~ l _ '
Profeulon:ll OffIcel denne I'1;irola Road
and Belle Boulevard The officII have
articulated b.adn with I brle per
centille of wlndOWll on all vlslble build
1"1 sides Parkf"l II arn"led at the
wback" of the bulldJ"l1 and thUI
Icreened from the IUTolA'ldln.ltreeu
Alon. Willow Creek offices have wfn..
dOWll and optional outdol)f .utl"! If
eu that look out over thI. veen envl
ronment. Pedestrian walkways Sir
round and connect the buJldlnl' The
walkway. conveniently connect to the
sidewalk. a10fl1 Belle Boulevard and the
multi use path alona WUlow Creek.
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TYPICAl SECTION THROUGH IEUE 100000AAD
IlUlLDINGS HAVE WINDOWS AND AIlCHlTEcnJlVJ. AIlTIroUoT1 :lNS ON....U. fACADES
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ASI-lTllEES
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Gll.A$SES
HUAl.UClGI\AY
nl\EET UGH'lS
MARCOLA MEADOWS
ALDER PlAZA
PROFESSIONAL OFFtCE
~
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~~
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SATRE
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!JJ MAR 2" 07
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m _____ _ __ _ . c~DER_P~AZA
PROFESSIONAL OFFICE
,,~~..~~.~- ,',.i~.-
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MARCOlA MEADOWS
ALDER PLAZA
PROFESSIONAL OFFICE
- -
--
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-
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~~"clfJ~'<:W"-,,'~ \ '\ ~I Ii r' I'
At O1k Prlll.-Ie Homes. II....e &mlly hames Itll located on
relldvtly slmn Iou wlth limited setba.cks The sueeu are
n3frow and I"aIve on Street parklnl ParklnJ bays are paved
differently from the sueet lueJf which make thl streeu
Slem even morl Intimate Street trees Ite located In
Jreen strips. sepantlnl pl!dutrla.ns and cars. To.ether
thell! dancterbtlcl provide an intimate, u.fe. pedestrian
friendly '. "It. Houlellr. Vl!rtIcaRy offlet from the
Itrl!l!t by two or three steps GItlIU are Iccellld 'rom
alley ways whlch funher enhances the pedestrian friendly
chanaer of the vllbJe A veen lquarl! 1111 at the Cl!!ntel'
of the vOlale It provides unprovammed open space and I
lman play y.ard The Ireen square b coooected to park
land to the north of Marcola Meldows A tree-llned
Itreet with IldewJ.11a Ind a uDrmwaW lwale connecu
the vUlale and ItI JfIlen lquare to WUIow Creek T~
hDmesvUlall!tothllsouth.
OAK PRIARIE HOMES
....
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en
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ill MAR 2 7 DI
By
TYP'lCAL ST".EfT IN THE SINGE fAHI.Y VILlAGE
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HAIIIGJlASSI
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OAK PRIAR/E HOMES
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OAK-P"R~KII::; 116Mb:S
MARCO LA MEADOWS
OAK PRARIE HOMES
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SATRE
\
: arelo(2te~b=~ncol
' low Cree~:el!tI IaYIl strolll
- II!t;:lor road wnhoUIU tuYI!
bulldlnl edits. Ib~e::om ;aUey w.ays
(olnlel access e kthettouS!s;are
Alana Willow Vl!~ with tr"elllled
set on I. h!&he..- ~~nl the collector
~- ------.. I!I t floors of !he town-
roads the nri n offset from the
housu are "I!~a. ~rtll! neps. v.tllte
street level wi ed on arade
townhouses are accen
from lnterRllI sueeu
TOWN HOMES
WILLOW CREEK
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MEADOWS
MARCOL';,EK TOWNHOMES
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MARCOLA MEADOWS
WILLOW CREEK TOWNHOMES
~
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ASHWOOD COTTAGES. SENIOR LIVING
One story IC(l!!uible senior (otalle. are
privately Ioated uound a drcular drive and
srrQII leuonally wet meadow The cOb2JtlI
:are off.,,-t !rom the street on a 11lJhdy hi&her
I",de lbJt de emph;111In1 the welL AID",
Willow Creek private temlt!!! look out on
this centnlcreen spine The road Is CUf"b1en
and "ned with shallow swales.. ThIs sll&htlr
undub.t1nl bndsl?-pe Is covered with nldve
hoIll'"craueslntl Of1'l2J flowers Ash trees dot
the bndsape p;arkln. aral and driveway
approuhu Ife created from unit pavers
Wooden bolb.rds .e~r.lte pedestrians ilnd
a.n Charcoal colored concrete walks
Imed with wood slat benches provide for
Itro11ln1 opportunities and COMIICt to III
roundln. hYlna. shopplnl Ireal and open
SpltlS
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TYPICAl "REET VIEW IN ASHWOOD COTTAGES VUAC!
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HAI"GIlASSI
"""" HEAOOWS
A.SHTJlEE5
WOOOSlATTED
BENCH ES WITH
AJl.MI\E5TS
MET..-.LUC/GI\AY
STlUrTUGHTS
UNIT ,."VE1\S Oil.
[COnONE
WOODlot.l..AI\DS
r1ARCOlA MEADOWS
ASHWOOD COTTAGES
SENIOR LIVING
-- ,&,.
LANOCURRENT
SATRE
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iJ MAR 2 7 07 L
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CAMAS. IIIEADOW
-"PA-RTMENT HOMES
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MARCOlA MEADOWS
CAMAS MEADOW
APARTMENT HOMES
".fi"~ SATRE
....'t1nCTUU ,
~~
~ CAMAS MEADOW APARTMENT HOMES
~camu meadow apartment
homes are loated In:JUnd
' . ....." "", "".rid.. 'p<"
spue and a play:area Private
U r ncu border die Ireen
meadow The Ireen Is alia part of I
lonl view corridor that extends from
the slnrte family vlIl;qe To-lhouse
style aparanent;l ronn I. In.nltdon
from the stfll'e family homes to the
ap;lrtment l'b.ts Parkin. stlnS are
clustered tolether Raised street If
us dow down trVfIc
HNII.CiI'-"51
CAHAS M<ADOW
~"~ I'lAYWO<X> ASH
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WEEPING
WlLLCWO
wooosu..TTm
BENCHES
METAUIOGII!.AY
snmUG>m
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MAR 27 07
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lNTrAVERS
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CAMAS MEADOW APARTMENTS
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LANOCURAEI'JT
N'AATHENn HOHES ~ P'kIV'TE TEUC8lOOltlNG OllT ON tlft Gll.EEN
TYPlCAlSTI\UT VIEW IN CAMA5 ~w VILlAGE
lDJ [E@[EaW1fF11J.f
W MAR 2 7 07 /I
Lf
ASHWOOD COTTAGES
SENIOR LIVING
> ~ '" ,~[~ "t ",,"",; ""'-" I')....~"~~t;,,;..;:~:
,~ 'f.'~~l' -...~-,." . ~'" j\';'-l:'~~lt!'f~~,...:.;'~,.r."'~"<J~I~i1~\~:ti
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f ...L~;:..., .(!'"~*' '~;!cl~/ ~-".....::':W..:W:,,; ~,~~' :: f - - ..<;~ 1'f~ \ t'~,; nrt"~r~& ':~-'..> .i- \ '1.). ~\~~t;\r*>'
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~'!.t:<~..;~~~{::,,'..,~ -:~Il/iJ\-t/ ...->.:...t..... ':. -, .. ~:J~..r\_ ~ ~'- r '7, .j~~>""kl'1 "':-l"-};~""'-';'~j~'"
t,.,[.t.;?......l4 ,,, r'~-::I ,..,. I ,.,.t';...:i....~~ t~IY '.;::- _"~ ~ r",.._ 0;: I'" _ 11'
'tof.,.,~~I>.e ' ~ -...,- "', ~""';~.~f~....,..;:;- ,~ _\~ '~~
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MARCOLA MEADOWS
ASHWOOD COTTAGES
SENIOR LIVING
~illI\j~ SATRE
",LHIT,CTU"
ATTACHMENT 5
ODOT Correspondence
~~@~G\!J~~
lm MAR 27 07 :../
B\
'-
ATTACHMENT
5-1
Oregon
Ted l<l.1Jon!psla, Governor
Dcpal tmcnt of Transpol tatton
RegIOn 2, Area 5
PlannIng & Development Office
644 "A" Street
Springfield, OR 97477
5417471354
FAX 541 7562509
ed w moore@odot state or us
9 March 2007
Gary Karp,
City of Springfield
71 SE "D" Street
Springfield, OR 97478
Re ODOT comments on the Marcola Meadows proposed Metro Plan amendment and
Zone Change
ThIS letter represents ODOT's comments on the aforementIOned proposed Metro Plan
Amendment and Zone Change requested for the Marcola Meadows development located north of
Marcola Road and west of28"'/3 I" Streets In Sprmgfield, Oregon
The proposed Metro Plan designations for the site mclude redefining and enlargmg the medIUm
density residential area to 54 7 acres, modlfymg the community commercial designatIOn and
addmg MUC (commercial with a mixed use overlay), and changing the campus mdustrlal
designatIOn to a miX of CC (14 8 acres), and MUC (30 8 acres)
Plan amendments and land use regulation amendments are legulated under OAR 660-012-0060.
the "Transportation Plannmg Rule" Ifan amendment significantly affects a transportation
facility, a local government must provide a form of mitigation
As stated m the Traffic Impact AnalysIs (TIA) for the proJect. the worst-case Amended Zonmg
scenano would generate significantly more traffic than the Current Zonmg scenario In order to
avotd all but one significant Impact to the transportation system, the applicant IS proposmg to cap
the tripS generated at a level slIghtly higher than the level that would be generated by the
Prehmmary Plan (not part of thiS apphcatlon) The foundation for the trip cap IS based on hmltmg
the type and mtenslty of uses allowed wlthm the project hmlts ThiS has been captured and
summarIZed m Table 4C of the T1A
By mcorporatmg the concept ofa trip cap, the developer was able to reduce the traffic Impact of
the development to sltghtly below what would have occurred with development under the current
zonmg of the property The only location where the proposed plan and zonmg map amendment
will result m a Significant Impact to the transportation system IS at OR 126 @ Mohawk eastbound
off-ramp To address tmpacts at the eastbound ramps of the Mohawk Blvd @OR 126
mtersectlon the TIA proposes the followmg mitigation
.
Traffic control_~hanges allowmg left-turns form the eastbound ramp centm~ @ ~ 0 ill ~ J'
~ MAR 2 7 en
5-3
By_
The mItigation proposed by the app!tcant IS to modifY the eXisting ramp which has a single lane
left-turn lane to one have duel left-turn lanes According to the analysts preformed In the TIA,
thts will result In congestion s!tghtly below what would be anticipated under current zoning
In conclusIOn, In order for the City to approve the Marcola Meadows plan amendment and zone
change and meet the requirements of the TPR, there will need to be two conditIOns of approval
The type, intensity and mix of development allowed within the project site must be
constrained or !tmlted to that analyzed In the TIA and enumerated In Table 4C
2 Put In place prior to occupancy tlaffic control changes at OR 126@ Mohawk Blvd EB
off-ramp as Identified In the TIA
With regard to the mitigation (the introduction ofa dual-left at an OOOT-controlled signalized
intersection) proposed by the appltcant for OR 126@ Mohawk Blvd, the applicant will need to
submit plans for the traffic control change to the State Traffic Engineer for review and apploval
Should the State not approve the TIA proposed traffic control change, the applicant must be
reqUired to work WIth ODOT to ,denttfY and Implement necessary mitigatIOn to limJl the traffic
Impact of the proposed development to a level at or below the traffic condItions that would
otherwise be expected at time of opening and the end of the plan period (2025) under current
zoning
Please enter thIS letter Into the record for the planl1lng commiSSion and upcoming City council
heal Ings
c Erik Havlg, Region 2 Planning & Development Manager
Jane Lee, Area 5 Manager
Michael Spaeth, District 5 Manager
Marguerite Nabeta, DLCO Field Representative
1u)~@~O\TI~J.
~ MAR 27 Q\
By J
>
5-4
ATTACHMENT 6
DLCD Correspondence
~,]rif~ ~~ !~'
" MAR'l2 7 D7 I II II
.:J
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A TT ACHMENT
6-1
Dregon
Theodore R Kulongosk1, Governor
Department of Land ConservatIOn and Development
1140 W1l1aglllesple Rd ,Ste 13
Eugene, OR 97401-6727
(541) 686-7807
Fax (541) 686-7808
wwwled state Or us
March 12,2007
Mr Gary Karp
City of Spnngfield
225 Fifth Street
Spnngfield, Oregon 97444
~
~
RE Eu~ene/SDnn~field PAPA 001-07 Plan diagram amendment and PAPA 003-07
_SDnn~field zone change) for 56 acres
Dear Gary,
Please submit tlllS letter mto the record of the proposed Metro Plan Amendment and zone
change requested for the "Villages at Marcola Meadows" development In addition, the
department supports the recommendatIOns to address Goal 12 and the transportatIOn
plannmg rule (TPR) prqYlded to the City by the Ed W Moore, ODOT on March 9,2007
and enclosed We would only request an additional conditIOn of approval to be m
compliance With Goal 12 that the commercial development prOVide connecl1vlty With the
eXlstmg, as well as new residential development
We have read the applicatIOn and wlule there appears to be compelling reasons to
redeSignate the property to CommerCial, the eVidence to date does not adequately balance
nor answer the mam questIOn of contmual sluftmg of one plan deSignatIOn and resultant
zone category that IS m low supply to another and vice versa We certainly advocate the
contmued efforts by the City to prOVide the type of analYSIS of current mventones that
could then be adopted for use as the factual mformatlOn for deCISIOn makmg and should
better address the city's employment lands needs We do see tlus proposal as potentially
vulnerable for appeal however and, like you, not sure on how to resolve thiS pomt m tune
for the everyday actIOns of the cIty of Spnngfield These are Imtlal areas of concern that
we are wlllmg to work WIth the City to see If they can be resolved to aSSISt m makmg a
dec1S1on on thiS plan amendment Please do call me to diSCUSS the attached Issues
Smcerely,
~ar~~~!,!~~
S WIllamette Valley Regional Representative
Enclosure
fDJ~ @ fE ~ n-/
UIJ MAR 2707 111
Cc
File
,
Ed W Moore, ODOT
By
.---...c
~-3
1
@
PAPA 001-07
Oregon Department of Land
ConservatIOn and Development
March 12,2007
1. Key Issue Sprmgfield IS low on Campus Industnalland, )et the applicant
proposes convertmg a large percentage of Its short-term supply to
commercial and residential uses meetmg a need under those zonmg
categones There are two ways to reach compliance with Goal 9 a
quantitatIve analysIs of the supply of needed sites m a land use category, or a
qualitatIve analysis of the partIcular site as to ItS SUitability for the zoned use
2 The applicant does not supply the cumulative actIOns to meet CommerCial
needs that have been occurrmg smce the 2002 Commercial study. The
applicant prOVides analYSIS from a data base that has not been adopted for
land use purposes nor has It been coordmated With the state of Oregon, The
state does not know nor has It been prOVided an opportunity to diSCUSS the
assumptIOns m the data base.
3. The applicant prOVides general comments of a qualitatIve nature regardmg
the site mcludmg the eXistence of power lines and an IrngatlOn ditch, and the
site's proximity to reSidentIal and the Kingsford plant However, no analYSIS
or reasonable conclUSIOns to JustIfy redeslgnatlOn are prOVided.
4 PotentIal problem areas that need better or additional diSCUSSIOn
a The subject SIte IS meluded m the 2006 update of the MetropolItan
IndustrIal Lands Inventory Report as one of the development-ready SItes
for short-term mdustnal use It has been reserved as a development-ready
mdustnal sIte smce 1995 So far the applicatIon doesn't reconCile the
borrowmg from one plan element to asSiSt With another
Ti;j ~ @ ~ n \TI ~ \i"'\
' \~ MAR 2 7 01 t
dJ
b Metro Plan's Economic Element PolIcy BI2 discourages plan
amendments that change development-ready mdustnal sites to non-
mdustrIaI deSIgnatIOns The proposal IS not consistent With OAR 660-
009-0010(4) because It IS not consistent With the City'S own mdustnal
converSIOn polICies The applIcant does prOVIde other counterbalancmg
polICies but doesn't prOVide the diSCUSSion of how to weight the balancmg
Cy
.:;
_....---
c
Accordmg to the applIcatIOn, at least 155 acres ofmdustnalland m
Sprmgfield have already been converted to reSidentIal or commercial use
Is tlus a large percentage of the remammg mventory or not? Should make
a difference to deCISIon makers and could mform a way to balance as
suggested m "b" above
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PAPA 001-07
Oregon Department of Land
ConservatIOn and Development
March 12, 2007
d Accordmg to the applicatIOn, both short-term and long-term supplies of
Campus lndustnal (CI) land are cntlcally madequate, and thIS applicatIOn
proposes convertmg 29% of that cntlcally madequate supply to commercial
use
e Accordmg to the appllcal1on, Spnngfield's supply ofCI land WIll be
depleted by 2015
f The fact that thIS site has not yet developed wIth any CI uses does not
Justify convertmg It to a regIOnal commercial retal! use and reducmg the CIty'S
dwmdlmg CI land supply even further - CI code was Just revised 2 years ago
to potentially asSISt m sltmg Issues - we acknowledge that applicant does have
market expert, Lane METRO dISCUSS Viability of sIte as better for commercial,
but then how to balance It agamst loss of CI mventory?
,
g The cIty may not utilize for land use deCISIOn makmg but can consIder the
draft Jasper Natron SpecIfic Development Plan deslgnatlOns m determmmg
whether thIS applicatIOn WIll negatIvely affect the CI land supply The CIty
may only use plans and plan poliCies that It has adopted
h The 1999 Eugene Spnngfield Lands Study shows a surplus of all types of
resldentJalland If thIS IS still true m 2007, then the cIty may not convert CI
land, which IS m short supply, to a residential use (Part of the proposal IS to
mcrease the amount ofMDR land on the sIte) The applicant doesn't dISCUSS
mformatlOn from the CIty'S momtonng program Is the mformatlOn avaIlable
from the cIty for the applicant to use?
There IS no mscusslOn of why a regIOnal large retal! store (e g, a home
lITlprovement center) IS an appropnate use m a MetroPlan Nodal Development
Area (#7C) Several large retail stores, mcludmg another local large Home
Improvement Center eXIst m close proximIty to the sIte They all functIOn as
reglOnal retail proVIders TypIcally commercIal uses at a smaller-scale local or
neIghborhood commercial grocery store, bank are utIlized for nodal
developments That IS not to say that a larger retall store couldn't serve that
purpose but what role It WIll play m servmg a nodal development (to take tnps off
of the transportatIOn system), and proVIde connectIvIty to dense reSIdential
development should be dIscussed
A large retal! st9re such as a home Improvement center IS not, as descnbed m the
applicatIOn, a "supportIve transItIOn m scale and ll1tenslty between reSIdential
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PAPA 001-07
Oregon Department of Land
ConservatIOn and Development
March 12,2007
By
neIghborhoods and larger commercial uses" On the contrary, a home
Improvement center IS the type of larger regIOnal commercial use that IS
mcompatible With a residential neighborhood In the conte~t of tlus Site, It very
well may be a transItIOn between mIddle and high denSity resIdential and other
heavy mdustnal uses Perhaps worth dlscussmg
7 MIxed-use development IS a deSlfed type of development for a deSignated node,
but thiS proposal IS traditIOnal development usmg the catch words of mixed-use
The different uses (commerCIal, residential, office) are segregated mto different
areas ("vIllages") over a very large (IOO-acre) area True ffilxed-use combmes
uses wltlun bUlldmgs (vertical mixed-use), or at least locates bUlldmgs With
different uses next to each other (honzontal mixed-use) A large regIOnal one-
story retail store lIke a home Improvement center IS generally not considered
mIxed-use or part of mixed-use, unless the_bUlldmg has upper floors ofhousmg
umts
8 Because they have not been adopted mto the city's camp plan, the September
2006 ECONorthwest Lane County CommercIal and Industrial Land Supply
Report and the economic growth predictIOns for the South WIllamette Valley may
not be used for tlus PAPA or other planrung purposes "Endorsement" IS not
suffiCient, the city must adopt by ordmance WIthout the reqUIred coordmated
analysIs the raw data base does not comply With Goal 9 Economic Development
9 The proposal should state when the CIty adopted the 2001 Eugene-Spnngfield
Metro Area PublIc FaCilities and ServIces Plan, on which It relIes
10 The proposal does not appear to comply With the Goal 2 coordmatlon
requlfement There should be adequate findmgs regardmg coordmatlOn With the
City of Eugene because of the regIOnal nature of the MetroPlan and the UGB
a Spnngfield should also coordmate WIth Eugene on tlus proposal because
the Metropolitan Industnal Lands Inventory Report doesn't segregate out
a specific land need for the City of Sprmgfield
II We do agree that the 1999 Eugene Sprmgfield Lands Study may be too old to be
useful, but until more contemporary work IS completed the applicant must do
comparative analYSIS
,
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6-6
ATTACHMENT 7
TransPlan Proposed Nodal Development Area Map
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ATTACHMENT
7-1
Legend
Potential I
Nodal Development Areas'
for the
Eugene-Springfield Metro Area
o Nodal Development Areas
". Urban Gro -...-
D~@~O\TI~f\
MAR 27 07 1
At1l8& Idenulllld 81 nodal dllvelopmllnt Ireu Ire conskJered
to twvB potllnll.d hu ttll. type of lend vu pellern, Other
areas not deslgn.lad lor nodal development mlY ,150 be
lound to have pollllnllallor nod.l dllvlllopmenl
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