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JASPER NATRON
r~oroMoLl ALTERNATIVE A
SPRINGFIELD TGM
SITE FEASIBILITY ANALYSIS
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Springfield Nodes Market
Analysis and Development.
Strategy
Prepared for
The City of Springfield
by
ECONorthwest
99 W Tenth, SUite 400
Eugene, OR 97401
(541) 687-0051
February 2003
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Summary
BACKGROUND AND PURPOSE
ThIS report (the Spl !ngf~eld Nodes Mal ket AnalysIs and Development
Strategy) IS a market analysIs m support of an effort by the C,ty of
Sprmgfield to adopt ImplementatIOn measures that will encourage hIgher,
densIty mIXed,use developments m SIX subcenters (nodes) m Sprmgfield
The Sprmgfield Nodal SIte SelectIOn and ImplementatIOn proJect, of
whIch thIS report IS a part, WIll mclude analysIs of regIOnal transportatIOn
condItIons, Sprmgfield's development code, and ImplementatIon Issues at
each nodal development sIte, m addItIon to thIS Mal ket Analys~s
NATIONAL TRENDS IN NODAL DEVELOPMENT
Chapter 2 desCrIbes key natIOnal trends related to nodal development
The prImary message IS that nodal development IS happemng m CItIes across
the Umted States, suggestmg that It could be successful m Sprmgfield
Chapter 2 leads to several key conclusIOns about nodal development m
Sprmgfield, mcludmg
. WhIle nodal development IS mtended to facIlItate walkmg, bIcyclIng, and
tranSIt use, It must also accommodate the automobile to be successful
. In nodal developments, publIc amemtIes such as walkways, open space,
and plazas SubstItute for prIvate amemtIes m tYPIcal developments
Creatmg hIgh,amemty enVIronments IS CrItIcal for the success of nodal
development
. G,ven the hIgher costs assocIated wIth hIgher,densIty development and
the potentIal need for structured parkmg to achIeve the denSItIes
sometImes desIred or speCIfied m nodes, some form of publIc assistance IS
usually necessary for successful nodal development
REGIONAL GROWTH AND DEMAND
PopulatIon and employment growth WIll drIve demand for reSIdentIal and
commercIal development m Eugene,SprIngfield
PopulatIOn m Eugene,Sprmgfield IS expected to mcrease by over 100,000
between 1995 and 2020, averagmg about 4,000 people per year Tins level of
populatIOn growth IS expected to generate demand for about 1,800 reSIdentIal
umts per year m the metropolItan regIOn
Roughly 16% ofsmgle,famIly and apartment umts built m Eugene,
SprIngfield are expected to locate m nodes, generatmg regIOnal demand of
Spnngfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page III
i
Page IV
250 umts per year m nodes Demand m Sprmgfield nodal development areas
could range from 50 to 96 umts per year based on Sprmgfield's share of
populatIOn and bmldable resIdential land m the regIOn
Employment m Eugene.Sprmgfield IS expected to mcrease by 46,140 over
the 1995-2015 penod, or about 2,300 Jobs per year over the twenty.year
penod Tills employment growth IS expected to generate demand for 14 to 23
mIllIon sq ft of commercIal and mdustnal development, or 700,000 to 1 2
mllhon sq ft per year
NODAL DEVELOPMENT AREAS
The CIty of Spnngfield has deSIgnated SiX areas for nodal development
Downtown Spnngfield, Glenwood, Mohawk, Rlverbend, Jasper.Natron North,
and Jasper.Natron South These SiX nodal development areas have a total of
682 7 acres
Concept plans have been developed for each ofthe nodal development
areas that descrIbe proposed land uses that are consIstent WIth nodal
development goals All of the concept plans call for creatmg hIgher. densIty
mlxed.use centers m each ofthe nodal planmng areas
. Downtown Sprmgfield remvlgoratIOn of Downtown Spnngfield as the
heart ofthe CIty, WIth streetscape Improvements, better pedestnan
connectIOns, and pubhc spaces EstablIshment of an arts and cultural
dIstrIct, wIth mfill development and redevelopment to remforce eXlstmg
retaIl and add resIdential uses Downtown
. Glenwood redevelopment of the nodal development area mto a miXed.
use center that IS pnmanly resIdential wIth some office and retal! uses
Redevelopment of the entIre area could add 600-800 resIdential umts,
100,000-200,000 sq ft of office, and 50,000-100,000 sq ft ofretml
. Jasper-Natron development OfthlS mostly greenfield SIte mto two
nodes The North node would be pnmarlly resIdential wIth some
commumty commercIal uses to serve the node, whIle the South node
would be an employment center wIth a miX of commercIal and mdustnal
zones
. Mohawk mfill and redevelopment of the eXlstmg commercial d,stnct to
mcrease a hlgher.denslty mIxed. use core, mcludmg resIdential uses, m
the nodal development area
. Rlverbend development of th,S mostly greenfield SIte as a regIOnal
medIcal campus surrounded by 882 umts of medmm.denslty resIdentIal
and a miXed.use center wIth 105,000 sq ft of retaIl and commercIal
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busmesses that serve both the node and reglOnal markets
February 2003
ECONorthwest
Spnngfield Nodes Market AnalysIs
and Development Strategy
.
MARKET SUPPORT FOR NODAL DEVELOPMENT IN
SPRINGFIELD
We compared the amount of development envlslOned m the concept plans
to the amount of development that wlll hkely be supported by economiC
conditions over the next 15-20 years
We eshmate that the concept plans call for 3,900 and 4,675 new
residential umts m the nodal development areas between now and when the
areas are bmlt out (the plans are mdefimte about when that would be) Our
assessment m Chapter 3 suggests that the likely average for residential
development m Sprmgfield nodes IS on the order of900 umts over the 2001-
2015 perlOd, substantially less than the amount m the concept plans What
does that mean? There are several possible mterpretatlOns
. The concept plans are fine, and our estimates of demand m nodes IS too
pessimistic We thmk this IS the wrong mterpretatlOn
. The concept plans are fine, but they are plans for a much longer perlOd
than the 15 years we are usmg m this study This IS a plausible
mterpretatlOn
. The concept plans are too aggressive about density This may be true m
the long run It IS almost certamly true m the short run Even though the
concept plans are probably aggressive, our assessment IS that they are not
wildly so .
The concept plans up to 1 3 mllhon sq ft of retail and office development
at bulldout This amount of development appears supportable by forecasted
employment growth m the reglOn
IMPLEMENTATION ISSUES
Downtown Sprmgfield
. Lack of development activity
. Avallablhty ofparkmg
. Need for busmess and streetscape Improvements to Improve Visual
appeal
. Current rent levels do not support development or renovation
Glenwood
. Need for access from Frankhn Boulevard and mternal clrculatlOn
streets
. Lack of sewer service and stormwater dramage
. Need for pedestnan and biCycle faclllty Improvements to Frankhn
Boulevard
. Need to Improve Visual appeal of Franklm Boulevard corridor
Spnngfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page v
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Chapter 1
Introduction
BACKGROUND AND PURPOSE
This report (the Spnngfleld Nodes Market AnalysIs and Development
Strategy) IS a market analysIs m support of an effort by the City of
Springfield to adopt ImplementatIOn measures that will encourage certam
types of higher-density land uses m SIX subcenters (nodes) m the City of
Sprmgfield (the Sprmgfield Nodal Site SelectIOn and ImplementatIOn
proJect)
The TransportatIOn Plannmg Rule' reqUires metropohtan areas m
Oregon to adopt transportatIOn system plans that mclude pohcles designed to
reduce per capita vehicle miles traveled (VMT) 5% over a 20-year plannmg
perIOd The Land ConservatIOn and Development CommissIOn (LCD C)
allowed the Eugene-Springfield transportatIOn plan, TransPlan, to meet the
reduced VMT reqUirement by adoptmg policies to Implement nodal
deuelopment TransPlan Identified over 50 potential nodal development areas
m the urban regIOn
A node IS an urban subcenter an area of higher-density development
Nodes have always occurred naturally m metropohtan areas The mtentlOn of
state and City pohcy IS to encourage more and certam types of development
m nodes Among the motivatIOns IS the reductIOn of automobile tripS by
creatmg high-denSity urban subcenters that contam a mIX of uses m
developments designed to faclhtate walkmg, blcyclmg, and transit use
When the LCDC allowed TransPlan to meet the reduced VMT
reqUirement through nodal development, It adopted recommendatIOns to
prOVide gUidance to local governments' These recommendatIOns mcluded
three relevant to this project
1 Eugene and Sprmgfield need to speclly speCific areas for nodal
development by May 2002
2 Eugene and Springfield need to adopt Metro Plan deSignatIOns and
zomng amendments for the speCified nodes by September 2003
3 Eugene, Sprmgfield, and Lane County need to review plan
amendments and zone changes outSIde nodes to assure that they are
consistent with the nodal development strategy
I Oregon AdmInIstratIve Rule 660 012
1 State of Oregon, Land Conservation and Development CommIssIOn, LCDC Order 01 LCDC 024, June 2001
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 1-1
Page 2-2
c,
Ct
lower automobile use associated with older traditIOnal urban centers Nodes
have some common characteristICs
. Pedestrian Orientation Nodes are designed to support the goal of
reducmg traffic congestIOn by offermg a vanety of residences, shops,
and employers wlthm walkmg distance of each other, With a connected
street network that supports pedestnan activity while de-emphaslzmg
the automobile and parkmg To support regIOnal goals ofreduced
vehicle miles, a node must encourage pedestnan activity so that
people can walk or bicycle to destmatlOns wlthm the node
. Transit Service Frequent transit servICe m nodes allow residents
and workers m the node to make regIOnal tnps Without usmg an
automobile A network of nodes m an urban area connected by transit
can help people to reach multiple destmatlOns usmg transit
. Pubhc Spaces With more people out on the streets, a node has more
promment pubhc spaces In some nodes, this may mclude actual parks
or pubhc plazas, but m others It may simply mean a higher emphaSIS
given to the eXlstmg pubhc space provided by streets and sidewalks
through such measures as wider sidewalks, street furmture, sidewalk
dmmg, etc
. Urban Densities In order to provide for a mIX of uses m a compact
space, nodes are by defimtlOn denser (more residential umts or
commercial floor space) than the surroundmg area, which IS a relative
term from one node to the next Density IS a key to provldmg a range
of services and uses wlthm walkmg distance
. Variety A node IS a mIXed-use center With varymg combmatlOns of
commercial and residential projects
The charactenstlcs of nodal developments vary Widely, rangmg from a
traditional downtown busmess district to a brand-new suburban
neighborhood center While all nodes have a few prmClples m common,
nodes have many characteristics that make them different
. MIX of Uses Most nodes are defined by more than one use, although
the exact mIX of uses vanes Some nodes may have a pnmanly retail
and office character, while others may be pnmanly residential With a
small retail component to support the residents
. Scale The size of a node can range from a smgle mtersectlOn of retail
services to serve a residential neighborhood to an entire downtown
spread over dozens of blocks The smallest nodes may be compnsed of
a smgle real estate development by one property owner, while the
largest nodes willmvolve dozens of property owners and many pubhc
and pnvate mvestors
. Reach Smaller nodes may pnmarily serve residents m a relatively
small radIUS of just a few blocks m either directIOn (representmg a 5
February 2003
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
to 10 mmute walk), while other nodes may be large enough to have
their own mternal populatIOn as well as draw from a large
surroundmg area By defimtlOn, downtown nodes have the largest
reach by servmg the entire city and even surroundmg commumtles
. LocatIOn Nodes can be geographically spread throughout a city and
regIOn Estabhshmg a network of nodes hnked by arterial roadways
and transit service wlthm an urban area IS Important to allow travel
between home, work, and shoppmg without usmg an automobile
Wlthm an urban area, nodes can be located vIrtually anywhere with
adequate transportatIOn access
. Corridors By creatmg "pulse pomts" of mterest along suburban
strips or corridors, nodes can break the monotony characterized by
so many of America's agmg and deterloratmg commercial stripS
Located on corridors, nodes can give defimtlOn to weakly defined
areas and can help tame traffic to make an area more pedestrian
friendly The Urban Land Institute (ULI) has recently concluded
that deterlOratmg suburban strips represent one ofthe greatest
threats to America's cIties and has developed a revltahzatlOn
strategy that IS centered on the use of pulse pOints to focus
development
. Waterfronts Sprmgfield IS located along two rivers, provldmg
ample opportumtles for nodal development that takes advantage of
and respects these natural assets Along waterfronts, nodes can
take on a speCial recreation, residential, or commercial character
that uses the visual and natural amemtles to add mterest and
value RlverPlace m Portland IS an example of a waterfront node
. Neighborhoods Smaller nodes provide services to support
surroundmg residential neighborhoods Neighborhood nodes can
mclude small commercial centers With grocery stores, dry cleamng,
banks, and other servICes as well as housmg m multi-family
developments or over retail uses
. Freeways As an alternative to the typical auto-dommated, big
box freeway commercial centers found at many freeway off-ramps,
nodes can accommodate development that takes advantage of the
extraordmary access and vIsibility provided by a freeway location
but m a pattern that facilitates pedestrian movement and allows
for a mIX of uses
. Transit statIOns Transit statIOns are Ideal locatIOns for nodes,
particularly those With a housmg or office focus Retail uses
reqUire convement automobile access to survive, but nearby
transit IS an amemty for housmg and offices Portland's Westslde
light ralllme has transit-oriented nodes m many statIOns, most
With primarily With a reSidential focus
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 2-3
. Downtowns By their very nature, most downtowns already
functIOn as nodes Most are mIXed-use, pedestrian friendly, and
offer a variety oftransportatlOn optIOns Contmued nodal
development patterns m downtowns can help to preserve these
quahtles
. Subcenters Nodal development IS appropriate for both urban and
suburban locatIOns Indeed, It IS m the tYPically auto-dommated
framework of suburban development that a nodal development
could have the most Impact Nodal development can occur through
redevelopment of eXlstmg centers or through new development m
greenfield sites Redevelopment of agmg centers IS more difficult to
achieve than new development, but the sheer number of agmg
suburban centers suggests that there IS overwhelmmg potential
In urban locatIOns, many eXlstmg neighborhood centers already fit
the defimtlon of nodes, but there IS ample opportumty for
enhancement and redevelopment of these centers mto hlgher-
denSity mixed-use nodes
ELEMENTS OF SUCCESSFUL NODAL DEVELOPMENT
The key to successful nodal development IS that the node respects basIC
real estate development prmclples While the locatIOn, Size, and deSign of a
node supports many public goals and benefits, It must ultimately be a
profitable real estate venture m order to attract and sustam private
mvestment BaSIC requIrements for successful nodal development follow
LOCATION
The locatIOn of a node IS the first and most Critical element of success To
be successful, a node must be located on or near a major roadway and be close
to reSidential areas so that It can both be a convement regIOnal destmatlOn
and draw from adjacent markets The number and mcome of people workmg,
shoppmg, and hvmg m a nodal development area will determme the type and
amount of convemence-orlented retail development m the node RegIOnal
retail developments and office-Oriented employers will be less dependant on
the characteristics of the people m a node
RETAIL
For retallm a node to be successful, It needs the same thmgs that retail
anywhere needs adequate buymg power, pass-by traffic, VISlblhty,
populatIOn base, and parkmg Successful retail m nodes must be located m
VISible locatIOns on or near streets With high traffic counts Despite the
pedestrian convemence of a node, most shoppers are likely to arrive by car
and the node must accommodate thiS fact If retail IS to be successful
Therefore, adequate parkmg must be aVailable To mamtam a pedestrian
envIronment, parkmg can be located behmd buildmgs and m shared
faclhtles, but It must be available for the retail component to succeed
Page 2-4
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
Retailers look for locatIOns where the mcome of daytime and mghttlme
populatIOn (workers and residents) and passmg traffic has the potential to
generate adequate sales As suburban greenfield sites near maJor
mtersectlons are developed, more natIOnal retailers are lookmg at
nontraditIOnal formats m urban mfilllocatlOns For example, new Target
stores m Portland and Seattle are multi-level, allowmg for smaller footprmts
that fit m urban neighborhoods In Portland, a new Safeway IS under
constructIOn that will be multi-level and will have housmg located above the
store These examples show that nodal development can accommodate both
small and large-format retailers Current trends mdICate growmg acceptance
of urban locatIOns by the retail mdustry
HOUSING
Housmg IS an Important element of nodal development, particularly when
usmg It as a tool for revitalizatIOn Housmg helps keep a node active seven
days a week, mcludmg weekends and evenmgs when most employment-based
centers are qUiet Residents enhance safety and create a more active place
As a land use, housmg has a number of advantages for nodal development
. Parkmg Urban housmg umts often reqUire only one parkmg space
per umt, whICh IS far less than the three or four per 1,000 square feet
reqUired for retail and office uses This reduces the need for land for
surface parkmg or expensive structured parkmg
. Retail For nodes With retail components, the addition of reSidents to
the area IS extremely benefiCial to the success of retail Office workers
tYPically support only one half square foot of retail space near their
place of employment, while reSidents can support up to ten square feet
of retail While reSidents Will not shop exclUSively m their Immediate
node, their retail spendmg Will still be much higher than by office
workers m the node
. Fewer on-site amemtles Instead ofhavmg on-site clubhouses, pools,
exerCise rooms, and open space amemtles tYPical of suburban housmg
developments, urban reSidents can utlhze the pubhc spaces, shops,
and nearby parks for their cultural and recreatIOnal needs In thiS
sense, the node IS the amemty, ehmmatmg the need for developers to
prOVide amemtles at their expense Without havmg to reduce rents
ThiS also helps offset the higher cost ofbuildmg urban style products
The type of housmg appropriate for nodes can vary Widely dependmg
upon the mtenslty ofthe node Most housmg m nodes will be small-lot smgle-
family and attached umts ofvarymg densIties These could mclude
. Rowhouses Smgle family housmg umts that are tYPically attached on
the Sides, but With no other umts above or below These can reach
densIties of 12 to 20 or more umts per acre They are usually
ownership umts, and may also be known as townhouses w hen offered
for rent
Spnngfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 2-5
. Apartments Rental umts can appeal to younger people entermg the
workforce as well as those who cannot afford homeownershlP
Dependmg upon the size of the proJect, apartments can range m
density from 20 to 24 umts per acre mlow-rlse garden apartment
buildmgs to 125 umts per acre m mid-rise and higher developments
. CondommlUms CondommlUms provide an ownership alternative for
those who seek the mamtenance-free and compact luestyle afforded by
apartments They usually offer more mterlor amemtles than
apartments and are best sUited for areas that already exhibit a strong
housmg market A three-story condommlUm buildmg can achieve 18
to 24 umts per acre with surface parkmg
. Semor housmg Nodal development can be Ideal for semor housmg by
offermg a variety of services and amemtles m a walkable enVIronment
Without the need for a car Semor housmg proJects are similar to
apartments and can range from 15 to 150 umts per acre
. MIXed-use housmg In addition to smgle-use housmg proJects, housmg
can also be mIXed With other land uses, usually With retail on the
ground floor and housmg above This IS a good way to utilize otherwise
empty space, but adds costs due to the different buildmg code
reqUirements for reSidential and commercial spaces
PUBLIC-PRIVATE FINANCING
A node IS by defimtlon a denser development than ItS surroundmg
neighborhood These higher densIties can reqUIre structured parkmg and
more expensive bUlldmg types In many CIties, however, market rents are not
high enough to support these higher buildmg and mfrastructure costs
Therefore, Without additIOnal finanCial support, these proJects will not
happen These are Ideal opportumtles for pubhc-prIVate partnerships where
the pubhc can assist m the constructIOn of shared parkmg facilities and other
features to offset the developer's added expense ofbuildmg more expensive
buildmgs As long as market rents m nodes are at the same level as
elsewhere m Sprmgfield, public assistance m achlevmg nodal development
may be necessary
TRANSIT SERVICE
While It must accommodate the automobile to some degree, a node must
be served by multiple transportatIOn types to be successfulm reducmg
automobile tripS Transit service can also have a posItIve Impact m property
values for property near a transit stop' Property value benefits are greater
for fixed-route systems hke bus rapid transit and hght rail than they are for
2 DIaz, Rodenck B "Impacts ofRali TransIt on Property Values," APTA RapId TranSIt Conference proceedmgs paper,
1999
Page 2-6
February 2003
ECONorthwest
Spnngfield Nodes Market AnalYSIS
and Development Strategy
flexible systems like buses Proximity to transit has mmor benefits for retail,
but IS considered an amemty for residential and employment uses
CASE STUDIES OF NODAL DEVELOPMENT
PROJECTS
This sectIOn presents case studies of nodal developments and specmc
proJects wlthm nodal developments The types of developments and proJects
selected for thiS sectIOn may be viable m Springfield nodal development sites
The case studies focus on mformatlOn that may be transferred to the
Sprmgfield market, hke proJect characteristics, buyer demographiCS,
constructIOn costs, and relative rent levels or sales prices
PrInceton Village, Clackamas County ThiS mIXed-use development
has both reSidential and office space It IS located two miles east of the
Clackamas Town Center shoppmg mall on the southeast edge of metropohtan
Portland, and IS part of 368-acre neo-tradltlonal SunnYSide Village The
reSidential portIOn ofPrmceton Village IS 6 4 acres with 84 rowhouses The
average lot size IS 2,500 square feet and the average umt size IS 1,450 square
feet, with a gross density of 13 1 umts per acre
The developers mltlally targeted the umts to older empty nesters, double-
mcome young couples, and smgles They found that about half of the buyers
were smgle women The subdivIsIOn IS compact, well ht, and secure, and
those buyers liked that security About a fifth ofthe buyers were older
couples, who were downslzmg their homes The remamder of the buyers were
made up of smgle men, smgle parents, and some younger couples Few
buyers have children hvmg at home
The developer found that, at first, the development was a more difficult
sell than for conventIOnal developments The proJect IS located at the edge of
the metropolitan area, and homebuyers could buy a detached house with the
same square footage for the same price Smce the 1997 completIOn ofthe
proJect, there has been httle turnover The buyers have been happy, and have
chosen to stay Resale prices have risen, but not excessively Umts that sold
for $170,000 m 1997 IS now $185,000, and those that sold for $150,000 are
now about $168,000
Northwest CrossIng, Bend ThiS new 500-acre development will
mcluded a broad range of housmg types and Sizes, mcludmg smgle-family
homes, duplexes, accessory dwellmgs, townhomes, and apartments above
commercial and retail uses The average lot Size for smgle-family umts IS
about 6,500 square feet, and houses average about 1,900 square feet
CommerCial areas, schools, and parks are located wlthm the commumty
The development IS deSigned to support sustamable development practices
EXlstmg trees have been preserved and mcorporated mto the deSign,
mterconnected streets encourage reSidents to rely less on cars for
transportatIOn AdditIOnally, the builders are participated m the Earth
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Advantage™ program, winch addresses energy effiCiency, bUlldmg materials,
water, and mdoor aIr quahty
The developer reported that most ofthe buyers mclude families, young
couples, and retired couples Phase I ofthe proJect was bUilt near a grammar
school, and a high school IS nearby The schools are an Important amemty for
families The retired couples are attracted to the walkablhty ofthe
development
West Bend Village, Bend, Oregon Located 1 5 miles west of downtown
Bend, thiS 22-acre reSidentIal neighborhood has 88 detached smgle-famlly
homes Completed m 1996, lot size ranges from 6,000 to 10,000 square feet
and average umt size IS 1,500 square feet Gross denSity IS 4 1 umts per acre
Imtlal sale prices ranged from $120,000 to $200,000 The umts sold well,
despite a flat real estate market m Bend The homes were purchased by
buyers with slightly more mcome than orlgmally expected Resale prices have
slgnmcantly exceeded the orlgmal selling prices, and homes m West Bend
Village now start at about $200,000 '
FalrVlew Village, Falrvlew, Oregon The development IS located
southwest of NE Halsey Street and 223rd Ave, east of Portland, m
Multnomah County A mixed-used development, It mcludes reSidentIal,
retail, commercial, CIVIC, and open space Lot sizes for the smgle-family umts
range from 900 to 13,000 square feet The average umt size IS 2,100 square
feet
The target market was mlddle- to upper-mcome reSidents mcludmg
empty nesters, double-mcome professIOnal couples, and young families The
developer found that there was a higher-end market than they had orlgmally
antIcipated The return on mvestment has met the expectatIOns set down m
the pro forma and by the wmter of2002, the 274 smgle-family homes had
Yielded a profit of $30,000 per umts The multi-family umts had yet to show a
profit, but the developer experts that the apartment bUlldmgs will become
profitable wlthm two or three years
The development has seen a steady appreciatIOn of home prices, at a rate
exceedmg the average mcreases m the metro Portland area Lower-end
homes that mltlally sold for $139,000 are reselhng for around $165,000, and
moderately priced homes that started at $175,000 cost $220,000 m early
2002 '
Prospect, Longmont, Colorado Prospect IS a new planned commumty
III suburban Denver that encompasses many new urbamst and smart growth
principles to give It an urban feel Interspersed with parks, recreatIOn
3 From "By the Number-West Bend Village" III New Urban News Volume 6, Number 7 October/November 2001 and
''West Bend VIllage" from LIvable Oregon, February, 1997
4 From "Fall'Vlew Village the Full MlX m a Small Package" ill New Urban News Volume 7, Number 1
January/February 2002 and "Farrvlew VIllage" from LIvable Oregon, October, 1998
Page 2-8
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ECONorthwest
Springfield Nodes Market AnalysIs
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amemtles, retail space, and other urban uses, the development will mclude
505 residential umts on Just 80 acres through a mIX of smgle family detached
homes, town houses, condommlUffis, and apartments Its detached housmg
areas have achieved net densIties of 10 umts per acre, slgnmcantly higher
than what IS typICally found m suburban proJects
Designed to attract an upper middle class populatIOn, homes m Prospect
are slgmficantly more expensive than what would be marketable m
Sprmgfield, with condommlUms priced from the low $200,000's and homes
gomg for $300,000 to $500,000 Apartments also are also expenSive, with
rents rangmg from $700 to $1,100 per month However, these prices mdlcate
that people are willmg to pay a premIUm to hve m well-deSigned
neighborhoods at urban densItIes It also IS eVidence that well-deSigned
urban proJects can be successfulm suburban envlronments-m the suburban
environment of Longmont, It IS the urban quahty of the Prospect that
dlstmgmshes from other subdivIsIOns and makes It so desIrable
Laureola Oaks, San Carlos, Cahfornla Laureola Oaks lS a smallmfill
affordable housmg proJect located m the expensive housmg market of the San
FrancIsco Bay Area On less than one acre, the proJect mcludes 16 affordable,
attached townhome umts arranged around a common courtyard Usmg a
variety of affordable housmg financmg mechamsms, the proJect was bUilt on
a site that was too small to be conSidered for other commercial developments
Designed for families With children, the site design buffers the proJect
from the busy street With landscaplllg and parklllg Commumty space IS
prOVided by the common courtyard, whICh IS surrounded by the entrances to
the umts Each umt also has a small private yard m the rear Parkmg IS
concentrated m one locatIOn on the site Other mnovatlve design features
mclude front and rear entrances to each umt so that the rear of the umts
(which face the street) have a front door appearance to passers-by
Laureola Oaks shows that mfill development m nodes can be dense yet
still offer the open space and other amemtles that are requIred to attract
famlhes Further, by utllizmg affordable housmg financmg mechamsms, the
developer was able to build a reSidential proJect on a busy arterial on a small
site that was otherWise not attractive to developers
Belmont Dairy, Portland, Oregon The Belmont Dairy IS a mixed-use
redevelopment proJect m a close-m Southeast Portland neighborhood
Belmont Dairy has a mIX of affordable and market-rate housmg along With
26,000 square feet of commercial space, mcludmg a Zupan's supermarket
The proJect IS bUilt upon the site ofthe former Carnation Dairy and was
\
contammated With tOXiC chemICals which had to be removed pnor to
constructIOn
Through a combmatlOn of public and private financmg sources m
partnership With the City of Portland and the Portland Development
CommissIOn, the developer was able to make 66 of the 85 housmg umts
affordable to those of moderate lllcomes Rents at opemng were from $472 to
Springfield Nodes Market AnalYSIS
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$566 for the restricted umts (sectIOn 42) and ranged from $795 to $1,295 for
market-rate umts With a combmatlOn of shared and dedicated parkmg for
the residents and the retail space, the $14 million proJect achieved a density
of 28 umts per acre and a parkmg ratIO of 1 5 spaces per umt Subsequent
phases with new constructIOn on adJacent blocks have mcluded town homes
Part of the proJect IS new constructIOn, but some of the old dairy buildmgs
were reused The entIre proJect mcorporated PGE's Earth Smart energy
efficiency bUlldmg standards Located along a busy bus hne, the proJect also
reduces the need for reSidents to use automobiles smce a supermarket IS
located onslte and they can eaSily hop on a bus to downtown Portland
Orenco StatIon, HIllsboro, Oregon Orenco StatIOn IS a suburban
reSidential commumty bUilt on 200 acres m HIllsboro and surrounded by
high-tech mdustrles The reSidential areas of Orenco Station offer a mIX of
attached and detached smgle family homes arranged m a new urbamst and
pedestrian oriented layout Orenco StatIOn also mcludes a small town center
located along busy Cornell Road This town center IS served by a street grid
that provides access to 27,000 square feet of retail space, 30,000 square feet
of office space, and a mIX of 72 lofts and live/work townhomes
While the neighborhood IS located to the north of Cornell Road, most of
the retail IS adJacent to thiS arterial m order to capltahze on the drive-by
vlslblhty The retail center IS wlthm a lO-mmute walkmg distance of all
reSidential areas and IS located between the reSidential area and the nearby
MAX light rail statIOn
Recent survey research of Orenco Station reSidents has shown that the
deSign and character of the town center has had slgmficant Impacts on the
entire commumty A 2002 survey of reSidents showed that the town center
was one of the best aspects of the entire commumty, even for those that didn't
hve dIrectly m the town center umts That IS, the mIXed-use town center,
located on only seven acres, accrued benefits to the entire 200-acre
development Further, the walkable nature of the entire commumty
encouraged more frequent patronage at the town center retailers than m
other neighborhoods ThiS helped to foster a greater sense of commumty and
frlendlmess among Orenco StatIOn reSidents than m other surveyed
neighborhoods'
While proxnnlty to the MAX hght rail hne IS an advertised benefit ofthe
commumty, most reSidents contmue to commute by car However, the rate of
transit ridership, 18 2%, IS higher than for other suburban commumtles
ReSident surveys have found that Orenco StatIOn's quahty deSign
(architecture, open spaces, pedestrian amemhes, etc ) IS a larger draw than
the transit access Similar phenomena are hkely m Sprmgfield-well
,,"The SOClal and EnvU'onmental AchIevements of New Urbarnsm EVIdence from Orenco StatIOn," Bruce Pdobmk, PhD,
LeWIS and Clark College, November 2002 bttp //www lclark edul-podobmklorenco02 pelf
Page 2-10
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Springfield Nodes Market AnalYSIS
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designed, dense nelgbhorhoods that are pedestrian oriented and have a mIX
of services will be attractive m the marketplace
APPLYING NODAL DEVELOPMENT CONCEPTS IN
SPRINGFIELD
The mam message of this chapter IS that nodal development IS accepted
and successful at some level m urban markets across the Umted States The
success and acceptance of nodal developments m other markets IS an
mdlCator that nodal development can occur m Eugene-Sprmgfield as well
The overview and specific examples presented m this chapter lead us to
several conclUSIOns about nodal development m Sprmgfield
. While nodal development IS mtended to facilitate walking, bICycling,
and transit use, It must also accommodate the automobile to be
successful
. Commercial development m predommantly residential nodes Will
depend primarily on the number and lllcome of residents and workers
m the rmmedlate area
. Convemence-orlented retail, m particular, depends on the number and
mcome of nearby residents, shoppers, and workers For thiS reason,
retail IS unhkely to lead residential development m nodes Residential
must lead to create the market for retail, but retail may be necessary
to make the node attractive to residents
. Nodes With a concentratIOn of commercial development will have a
mIX of convemence-orlented retail that caters to residents and workers
m the node, and regIOnal commercial development that attracts
shoppers and workers from the larger urban regIOn These nodes must
be located m areas With good regIOnal automobile access, and retail
uses With a regIOnal market area reqUire VISibility from a roadway
and convement auto access Provldmg suffiCient parkmg while
mamtalllmg a pedestrian enVIronment IS the primary challenge m
these nodes
. MaJor "big-box" retailers are now consldermg urban mfilllocatlOns to
mcrease theIr presence m markets where large greenfield sites near
key llltersectlOns are rare or non-existent ThiS suggests that
Sprmgfield may be able to attract a grocery store or Similar large
retail use to a site that IS smaller than ones they would tYPically
developed m the urban frmge, particularly If the supply oflarge
greenfield sites m the regIOn IS constramed
. In nodal developments, public amemtIes such as walkways, open
space, plazas, and recreatIOnal faclhtles substItute for amemtles that
are tYPically provided by private developers m suburban residential
developments Creatmg hlgh-amemty enVironments IS critical for the
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success of nodal development This has the effect of mcreasmg the
costs of nodal development paid by pubhc funds
. Given the higher costs associated with higher-density development
and the potential need for structured parkmg to achieve the densIties
sometimes desired or specified m nodes, some form of pubhc
assistance IS usually necessary for successful nodal development This
assistance tYPically takes the form of financmg, tax breaks, and pubhc
fundmg for shared faclhtIes such as parkmg
. Alternative reSidential products-denser housmg ofthe type that IS
usually desIred m nodes-are already bemg accepted m Oregon real
estate markets These products mclude small-lot smgle-famlly,
row houses, accessory umts, and umts above retail
. ReSidential umts m nodal developments experience some kmd of
market premIUm m the form of higher sales price/rental rate, less
time on the market, low turnover, and price appreciatIOn
. Several developers report more demand from the hlgh-mcome segment
of the market than expected ThiS IS good news for nodal development,
as thiS segment can better afford the higher rents/sale prices needed
to make high-density development feasible
. High-density bUlldmgs can allow development of small mfill parcels
that would not be SUitable for traditional buildmg styles, better
utIhzmg land and mcreasmg denSity m the area
. Nodal development sites m Sprmgfield mclude sites that are primarily
greenfields (Rlverbend, Jasper-Natron) and sites that will reqUire
redevelopment of eXlstmg uses (Downtown, Glenwood, Mohawk) The
Downtown and Mohawk nodal development sites already have some of
the characteristIcs of a node
. The umque characteristics of each node, particularly transportatIOn
access and eXlstmg or planned development m the neighborhood, will
affect their development potential
February 2003
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Springfield Nodes Market AnalYSIS
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, ~
Chapter 3
Growth and Development in
Jh~Metropolitan Area
This chapter sets the context for evaluatmg the potentIal growth m the
SIX nodes It does that by descrlbmg expected growth m the Eugene-
Sprmgfield metropohtan regIOn, and m subareas of the regIOn Those
estimates allow us to make some Judgment about the amount ofthat growth
that It IS reasonable to expect m the SIX Sprmgfield nodes that are the focus
of this study
The Lane Council of Governments produced forecasts of populatIOn
growth, demographic shifts, and employment by mdustry m the Eugene-
Sprmgfield metropohtan area' These forecasts were developed as part ofthe
modelmg for TransPlan, the Eugene-Sprmgfield regIOnal transportatIOn plan,
and generally cover the 1995-2015 period We use these forecasts to
summarize expected growth III Eugene-Sprmgfield, and we compare forecast
growth with actual growth up to 2000
ECONorthwest and Leland Consultmg used the LCOG forecasts as the
baSIS for establishmg development demand conditIOns m the regIOn m a 1996
report, Marl~et Demand Study for Nodal Development This report also
describes the regIOnal supply of land for development and the ImphcatlOns for
the pubhc sector We draw heavily from this report for this chapter, addmg
and updatmg data where necessary
This chapter starts with an overview of expected populatIOn and
employment forecasts PopulatIOn and employment growth m Eugene-
Sprmgfield will drive demand for residential, commercial, and mdustrlal
development m the regIOn, that development WIV reqUire land It then
describes trends m reSidential and commerCial development It ends With a
diSCUSSIOn of the ImplicatIOns ofthese forecasts for growth m Sprmgfield's
nodes
POPULATION AND EMPLOYMENT GROWTH
Forecast populatIOn and employment growth m Eugene-Sprmgfield IS
Important because populatIOn growth drives demand for reSidential umts and
employment growth drives demand for commercial and mdustrlal
development Table 3-1 shows forecast populatIOn m the Eugene-Sprmgfield
metropolitan area over the 1995-2020 perIOd PopulatIOn IS expected to
mcreaSe by over 100,000 m thiS perIOd, an average of 1 5% or about 4,000
people per year PopulatIon IS expected to grow slower than thiS average m
the first half of the forecast period, then accelerate m the second half
, The study area for LCOG's TransPlan forecasts IS shghtly larger than the Eugene-Spnngfield UGB
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Table 3-1 Forecast population In Eugene-
Springfield metropolitan area, 1995-2020
Year
1995
2000
2005
2010
2015
2020
1995-2020
Pop_ulatlon
224,100
240,700
257,400
277,600
301,400
325.400
n/a
Growth
n/a
16,600
16,700
20,200
23,800
24,.000
101,300
AAGR
n/a
14%
14%
15%
17%
15%
15%
Source Lane Council of Governments Gro'Nth and AAGR calculated by
ECONorthwest
Note AAGR IS Annual Average Growth Rate
PopulatIOn wlthm the Eugene and Sprmgfield city hmlts, which IS a
smaller area than that covered by the LCOG forecast, actually mcreased from
170,910 m 1995 to 190,757 m 2000-an mcrease of 19,847 or 2 2% per year
Estimated populatIOn m the LCOG forecast IS roughly 50,000 greater than
populatIOn wlthm the city limits because the LCOG forecast mclude
umncorporated areas with substantial populatIOn, most notably the River
Road area m Eugene and the Glenwood area m Sprmgfield Actual
populatIOn growth wlthm the city linuts exceeded forecast populatIOn growth
for the metro regIOn over the 1995-2000 period However, actual growth m
the city hmlts IS close to the 4,000 people per year average for the 1995-2020
forecast perIOd
LCOG found that the actual number of people wlthm the metro study
area was 2% less than the forecast level m 2000, based on the results of the
2000 Census If thiS 2% less populatIon persists through the forecast perIOd,
2015 populatIOn would be 2% less or 295,400 ThiS IS wlthm LCOG's proJected
populatIOn range for 2015,291,700 to 311,100'
Employment m Eugene-Sprmgfield IS expected to mcrease by 46,140 over
the 1995-2015 perIOd, or about 2,300 Jobs per year over the twenty-year
period Expected employment growth by mdustry IS shown m Table 3-2
Employment growth IS expected to be led by growth m ServICes (17,870),
Manufacturmg (11,080), Retail Trade (6,880), and Government (5,640), which
together account for about 90% oftotal employment growth expected over the
1995-2015 perIOd Growth m Manufacturmg Will be led by mdustrles m the
"Other Durable Goods" categories, which mcludes electromcs and
transportatIOn eqUipment More than half of the growth m Government will
be m State & Local EducatIOn, representmg employment at pubhc schools,
colleges, and umversltIes Table 3-2 shows that employment IS expected to
grow at an average rate of 14% per year, or about 2,300 Jobs per year, over
the twenty-year forecast perIOd
2 Lane CouncIl of Governments 2001 Eugene / Sprmgfl,€ld Metro Area Restdentwl Land Momtormg Annual Report
June
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Table 3-2 Forecast employment In Eugene-Springfield metropolitan
area, 1995-2015
1995<32015
Emolovment Sector 1995 2015 Growth % of Total
Mining 130 140 10 0%
ConstructIOn 4,030 4,770 740 2%
Manufacturrng 14,770 25,850 11,080 24%
Lumber & Wood Products 4,750 5,280 530 1%
Other Durable Goods 5,610 13,630 8,020 17%
Food Products 1,350 1,580 230 0%
Other Non-Durable Goods 3,060 5,360 2,300 5%
Transportation, CommUniCations, Utilities 4,000 4,950 950 2%
Wholesale Trade 5,050 5,930 880 2%
Retail Trade 21,500 28,380 6,880 15%
Finance, Insurance, Real Estate 5,660 7,750 2,090 5%
Services 31,610 49,480 17,870 39%
Government 20,130 25,770 5,640 12%
Federal 1,360 1,500 140 0%
State & Local Education 12,680 16,220 3 540 8%
State & Local Administration 6.090 8.050 1.960 4%
Total Waae and SalalV 106.880 153.020 46.140 100%
Source Lane CounCil of Governments Growth and AAGR calculated by ECONorthwest
AAGR
03%
07%
23%
04%
36%
06%
23%
09%
06%
11%
13%
18%
10%
04%
10%
1 1%
14%
The populatIOn and employment forecasts shown III thiS sectIOn reflect
expectatIOns for growth m the Eugene-Sprmgfield regIOn Actual year-to year
growth Will fluctuate above and below the long-run average Actual growth
slllce the forecasts were developed III 1995 has shghtly exceeded forecast
growth, but the current economic recesSIOn will probably push growth rates
below the long-run average Overall, neither we nor other forecasters have
seen any mformatlOn that would lead us to revise the long-run populatIOn
and employment forecasts for the Eugene-Sprmgfield regIOn
DEVELOPMENT TRENDS
RESIDENTIAL
DEMAND
PopulatIOn growth Will drive demand for reSidential development m
Eugene-Sprmgfield Table 3-1 shows that forecast populatIOn growth
averages roughly 4,000 people per year m the regIOn, which translates to
reSidential demand of roughly 1,800 umts per year, assummg 2 2 persons per
household Table 3-3 shows reSidential demand by structure type and tenure
for the 1990-2015 period The distributIOn of new dwellings IS based on the
1990 distributIOn of housmg stock and a potentIal distributIOn of new housmg
that reflects demographic shifts III the populatIon and trends III reSidential
development
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Page 3-4
Table 3-3 Additional dwelling umts by structure type and tenure,
1990-2015
Based on 1990 HOUSing Stock
Potential DistributIon (1)
Total % Units
Units Units Der Year
18,000 40% 720
4,500 10% 180
15,750 35% 630
6,750 15% 270
45.000 100% 1.800
Structure TJ~elTenure
Single-family detached (2)
Single-family attached
Apartments
Manufactured Homes (3)
Total
Own
Rent
Total Units
/1.0001
23-26
28-34
13-16
21-28
40 9-48 2
21-27
18-24
% Umts
Units Der Year
52-57% 980
6-8% 120
30-35% 590
5-6% 100
100% 1.790
47-59%
41-53%
Source ECONorthwest
Note Based on demographic forecasts and the relationship of household Income size and age of head with
structure type and tenure In 1990 Estimates do not Include adjustments for demolitions or vacanCies or any
eXIsting under~supply
1 Potential dlstnbutlon assumes Increasing cost of land and buildings resulting In more alternative hOUSing
2 Single-family detached Includes manufactured hOUSing on single-family lots
3 Manufactured homes Includes only those In manufactured home parks
The potentwl distributIOn of additIOnal dwelhng umts shown m Table 3-3
reflects an expected shift m the market away from traditional smgle-famlly
housmg, with mcreasmg shares for attached smgle-family, multi-family, and
manufactured housmg umts Key demographic shIfts, and their ImphcatlOns
for reSidential demand, mclude
. Average household size IS gettmg smaller, growmg shares of one- and
two-person households should mcrease demand for apartments and
smaller forms of smgle-family housmg
. An mcreasmg share of non-traditIOnal families, mcludmg smgles hvmg
alone, non-related adults, smgle-parent famlhes, and empty-nesters
(adults whose children have left home) should mcrease demand for
smaller housmg umts
. Shifts m family type, mcreasmgly busy lifestyles, and mcreased demand
for services should mcrease demand for umts with convement access to
work, schools, shoppmg, and other urban amemtles
. An mcreasmg share of older households should also mcrease demand for
smaller housmg umts, particularly attached or multi-family umts that
need less mamtenance Older households have a greater need for access to
health services, and some Will reqUire asslsted-livmg umts Limited
mobility m older households Will mcrease demand for umts With
convement access to shoppmg and services
. Increasmg relative price of housmg Will force households to economize on
housmg through smaller lots, smaller umts, or both
. Current mcome trends suggest regIOnal growth m households With
mcomes over $50,000 While thiS suggests contmued demand for
traditIOnal smgle-famlly reSidential development, the strongest market
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Springfield Nodes Market AnalYSIS
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for mIXed-use residential will be from younger and older, one- and two-
person households with mlddle to upper-middle mcomes
. Traffic congestIOn will get worse, mcreasmg demand for residential
development with convement access to ShOpplllg and employment centers
Countervallmg trends also eXist The long-run trends match with
consumer desires the share of owner-occupied housmg has mcreased (which
means predommantly slllgle-family housmg) and the average size of a new
smgle-famlly house has mcreased
DEVELOPMENT ACTIVITY AND TRENDS
Table 3-4 shows that the actual number of residential umts bUilt m
Eugene and Sprlllgfield averaged 1,502 m the 1997-2001 perIOd, rangmg
from a low of 1,018 umts m 2000 to a high of2,189 umts m 1997 While the
average number ofumts bUilt m 1997-2001 IS below the forecast average of
1,800 umts per year m Table 3-4, the range of actual umts per year bracket
the forecast average
Table 3-4 Residential bUilding permit Units In Eugene and Springfield, 1997-
2001
Structure 1997-2001
TVDe 1997 1998 1999 2000 2001 Total Share Ann AVll
Single Family 913 886 886 841 858 4,384 58% 877
Two Family 322 92 106 74 52 646 9% 129
Multi-Family 954 745 556 103 122 2,480 33% 496
Total 2.189 1.723 1.548 1.018 1.032 7.510 100% 1.502
Structure Type MIX
Single Family 42% 51% 57% 83% 83% 58%
Two Family 15% 5% 7% 7% 5% 9%
Multi-Family 44% 43% 36% 10% 12% 33%
Total 100% 100% 100% 100% 100% 100%
Sprmgfield Share
Single Family 21% 25% 26% 26% 26% 25%
Two Family 29% 30% 43% 59% 81% 39%
Multi-Family 14% 5% 1% 8% 4% 8%
Total 19% 17% 18% 27% 26% 20%
Source U S Census Monthly New Privately-Owned Residential Building Permits
Note Two Family structures are prlmanly duplexes and three + family structures are pnmarlly apartments but any of these
categones could Include rowhouse/tovmhome unIts
The actual mix of residential development by structure type bUilt m the
1997-2001 period IS close to the mIX antIcipated by the long-run forecast for
residentIal development shown 111 Table 3-3 The mIX of structure types built
m the 1997-2001 perIOd averaged 58% slllgle-famlly, 9% two-family, and 33%
multi-family The long-run residential forecast m Table 3-3 anticipates
residential development to consist of 55% slllgle-family detached and
manufactured home umts, 10% smgle-famlly attached, and 35% apartments
Springfield Nodes Market AnalysIs
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Sprmgfield's share of residential umts averaged 20% m the 1997-2001
perIOd Sprmgfield get an above-average share of smgle-famlly and two-
family structures and a below-average share of apartment umts
The average level of residential constructIOn shown III Table 3-4 IS
relatively low because 2000 and 2001 had weak demand for new constructIOn
The Eugene/ Spnngfleld Metro Area Res!dentwl Land MomtOllng Annual
Report' (RLM Report) states that 14,922 housmg UllltS were built m Eugene-
Sprmgfield between 1992 and 2000 This level of development averages 1,865
umts per year over the eight-year perIOd, shghtly higher than the 1,800 UllltS
per year average mdlCated by the long-run reSidential forecast for the regIOn
III Table 3-3 The RLM Report subtracted actual development from proJected
demand over the 1992-2015 perIOd to estimate remammg demand at 25,078
to 34,078 houslllg umts between 2000 and 2015 This level of demand
averages about 1,670 to 2,270 UllltS per year over the fifteen year period The
forecast annual demand m Table 3-3 of 1,800 umts per year falls wlthm the
range forecast III the RLM Report
Table 3.5 shows the characteristics of reSidential umts developed m 2000
A total of 1,208 umts were developed m 2000, 70% smgle-famlly detached,
10% smgle-family attached, and 20% apartments
'l Lane Council of Governments, June 2001
Page 3-6
February 2003
ECONorthwest
Springfield Nodes Market AnalysIs
and Development Strategy
Table 3-5 New dwelling Units by type, Eugene-
Sprmgfleld UGB, 2000
Eugene Spnngfleld Total
UGB UGB UGB
Single-FamIly, detached
Total Units 665 184 849
Average sq ft 2,305 1,655 2,165
Average units/acre
Low DenSity zone 49 39 46
Medium DenSity zone 56 53 56
Hlqh Densltv zone 42 n/a 42
Single-FamIly, attached
Total Units 89 28 117
Average sq ft 1,144 900 1,086
Average units/acre
Low DenSity zone 128 88 116
Medium DenSity zone 160 116 146
Hloh Densltv zone 308 n/a 308
Apartments
Total units 231 11 242
Average sq ft 767 821 769
Average units/acre
Low DenSity zone n/a n/a n/a
Medium DenSity zone 199 183 199
Hlah Densltv zone 240 n/a 240
Source Lane Council of Governments Residential Land Study Momtonng Report June 2001
Note Single-Family attached Includes duplexes and rowhouses where a single floor-ta-roof
wall separates the dwelling units
Residential development III 2000 was about 33% less than the average
rate mdICated m the long-run forecast m Table 3-3, 1,800 umts/year The mIX
of development m 2000 IS also different than the mix assumed m the long-run
forecast of residentIal growth, with actual growth havmg a larger share of
detached slllgle-family umts and a lower share of apartments The actual
share of attached smgle-famlly umts m 2000 corresponds to theIr share m the
forecast, 10%
There have been several examples of small-lot smgle-famuy residential
developments that Illcorporate neotradltlOnal deSigns similar to those
envIsIOned for nodal development Examples mclude
. Overbrook III south Eugene, With small homes on lots that average 2,500
square feet (for a gross denSity of about 12 umts/acre)
. Champlgnon, a series of small craftsman-style cottages off of Spyglass
Drive III Eugene
. Field of Dreams III the River Road area of Eugene, 44 small 2, 3, and 4
bedroom homes on lots less than 4,500 square feet The homes all use a
neotradltlOnal deSign, With front porches and no garages
While these developments were successful, they had some marketmg
challenges The lack of garages m Field of Dreams deterred some buyers, who
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 3-7
Page 3-8
want garage space for storage more than for cars In general, small-lot
residentIal must be designed to address market preferences for privacy,
security, and storage
Eugene also has several high-density multi-family residential
developments and mIXed-use proJects that have the density and
characteristics that would fit m nodal development Examples mclude
. High Street Terrace, an 8-story 60-umt apartment bUlldmg
. Broadway Place, With 170 apartment umts above two parkmg structures
that total 742 spaces and 14,000 sq ft of ground-floor retail
. TIffany BUlldmg, a four-story mixed-use bUlldmg constructed m 1902
The buildmg was renovated m the early 1990s and now has 18 residential
umts above ground-floor retail space
All ofthe examples of high-density multi-family residential developments
and mIXed-use proJects are m Eugene for several reasons Rent levels are
higher m Eugene, makmg higher-density (which IS also higher-cost)
development more economically feasible Despite higher rents, all residential
development m downtown Eugene has used some type of pubhc financial
aSSistance, such as tax breaks and low-mterest loans, to make them
economically VIable In additIOn to higher rents, downtown Eugene has the
access and amemty characteristics deSIred by occupants of high-density
residential developments, mcludmg pedestrian access to shoppmg,
entertamment, employment, educatIOn, health serVices, and downtown
Eugene IS well-served by transit service to other areas of the regIOn
LAND SUPPLY
Table 3-6 shows the supply of bUildable residentIal land m Eugene-
Sprmgfield as of 1992, residentIal development and other adJustments smce
1992, and remammg land supply as of June 2000 Table 3-6 shows that
Sprmgfield had 33% of buildable residential land m 1992, contributed 28% of
the residentIal land developed smce 1992, and now has 38% of buildable
residential land m 2000
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
Table 3-6 Supply of bUildable residential land
In Eugene-Springfield, 1992 and 2000
Eugene SpringfIeld
UGB UGB
BUildable Acres In 1992
LOR 3,140 1,640
MDR 584 243
HDR 150 45
Total 3.874 1.928
+ Acres Developed In Residential Uses
LDR (1,034) (419)
MDR (263) (87)
HDR (30) (7)
Total 11.327) (513)
+ Plan Amendments, Zone Changes, Other
Uses, and Environmental Constraints
LDR (157) 6
MDR ~~ 5
HDR (5) 0
Total (236) 12
= Total Land Remaining In 2000
LDR 1,949 1,227
MDR 247 161
HDR 115 38
Total 2.311 1.426
.
Total
4,780
827
194
5.801
(1,453)
(350)
(37)
11.840\
(151)
(69)
(4)
(224)
3,176
408
153
3.737
Source Lane CouncIl of Governments Eugene/Spnngfield Metro Area
Residential Land Momtonng Annual Report, June 2001
Table 3-7 compares the supply of remammg residential land to proJected
demand over the 2000-2015 perIOd Table 3-7 shows that the regIOn has
suffiCient land m each category to accommodate the low end of estrmated
demand, but the high end of estimated demand Yields a defiCit of 337 low-
denSity acres and 38 medIUm-density acres
, The bulk of bUildable resldenballand m Eugene-Sprmgfield IS m areas
along the urban frmge, mcludmg
. Jasper-Natron
. Thurston
. Marcola RoadlHayden Bridge Road
. Rlverbend (MedIUm DenSity Residential)
. North Gilham
. Santa Clara
. Royal AvenuelBarger Drive
. Eugene South Hllls/Moon Mountam
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 3-9
Page 3-10
Table 3-7 Supply and demand for resldenballand m the
Eugene-Sprmgfleld UGB, 2000-2015
Acres of land
Medium High
Density Density
408 153
low
Density
Residential land SUIl.Il.'y 3.176
Residential Demand 200052015
low Forecast 2,585
Hlah Forecast 3.513
Residential Surplus (Deficit)
low Forecast
Hlah Forecast
Total
3.737
328
446
75
102
2,988
4.061
591
(337)
80
(38)
78
51
749
(324)
Source Lane CouncIl of Governments, Eugene/Spnngfiefd Metro Area Res/dent/al Land Momtonng
Annual Report June 2001
Ofthe nodal development areas considered for this study, only Rlverbend
and the Jasper-Natron nodes have substantial areas of vacant residential
land The Rlverbend node has 117 acres of vacant MedIUm-Density
ResidentIal land, 28% ofthe regIOn's total vacant land III this zomng
category The Jasper-Natron nodes together have almost 98 vacant acres
zoned Low-Density ResidentIal, 3% ofthe regIOnal total
COMMERCIAL AND INDUSTRIAL
DEMAND
Employment growth m Eugene-Sprmgfield will drive demand for
commercial and Illdustrlal development Table 3-2 showed that employment
III Eugene-Sprlllgfield IS expected to grow at an average rate of 1 7% or about
2,300 Jobs per year over the next twenty-five years Estimated employment
growth III Table 3-2 IS a long-term average that reflects, but does not predict,
short-term fluctuations III the regIOn's employment level Despite the current
economIC slowdown, regIOnal employment IS still expected to grow m the
long run Table 3-8 estimates demand for commercial and mdustrlal
development based on expected employment growth m Eugene-Springfield
over the 1995-2015 period
Table 3-8 shows total demand of 14 to 23 milhon sq ft of development, or
o 7 to 1 2 mllhon sq ft per year over the twenty-year perIOd Agalll, this
estimate of demand IS a long-run average Commercial and mdustrlal
development tends to be cychcal, With perIOds of above-average levels of
development followed by perIOds of httle development actIvity As a rough
estimate for the purposes ofthls study, It IS adequate to assume that, on
average, about 1 mllhon sq ft of development for work purposes Will be built
per year, and less than half of that IS the kmd of development one would
expect to find m a node that IS primarily residentIal or commercial m nature
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
Chapter 4
Nodal Development
Site Evaluation
INTRODUCTION
An evaluatlOn of future real estate markets m nodes reqUires, as a base of
,
mformatlOn, a descriptIOn of current land uses and proposed land uses (per
eXlstmg concept plans) for the nodal development sites This chapter provides
that mformatlOn Documents reviewed for this evaluatIOn mclude
. Sprmgfield StatlOn Specific Area Plan, July 2001
,
. Glenwood Riverfront Specific Area Plan, December 7, 2000
. Glenwood SpeCific Area Plan Phase 2 Task 1, November 2002
. Fmal Jasper-Natron Specific Development Plan, June 1999
,
. Mohawk Boulevard Specmc Development Plan, January 11, 1999
. TGM QUick Response Planmng ProJect Maps for RlverBend, 2002
. Proposed Gateway Refinement Plan and Metro Plan Diagram
Amendments ReView (peaceHealth), November 18, 2002
Even though most were written wlthm the last three years, the
orgalllzatlOn and presentatIOn of data varies greatly between the plans Each
plan provides different UllltS of measurement and detail regardmg proposed
land uses and plan elements such as deSign gUldelmes for streets and
bUlldmgs, acreage of proposed land uses, and details about public services
The concept plans reviewed m thiS chapter provide a, framework for
future development m the nodal development sites Rather than re-create the
plannmg work that has been done, thiS proJect uses eXlstmg plans as a
,
startmg pomt and evaluates whether these plans are adequate to Implement
a successful nodal development strategy If these plans are found madequate,
I
then changes are needed to ensure the vlablhty of nodal development A
I
review ofthe site development plans IS an Important step m thiS process
I
ECONorthwest reviewed each of the site development plans, planmng
I
reports, and numerous maps and photographs of the neighborhoods to extract
current land use conditions and the proposed VlSlOn for e'ach node The
I
descrlptlOn of that mformatlOn follows m thiS chapter, and IS orgamzed for
each node as follows '
. Brief overview of the current activity and development m the node,
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 4-1
EXlstmg development m Eugene-Springfield, economIC trends, and the
pattern of regIOnal growth all suggest opportumtles for commercial
development m nodes Commercial development that could work m nodes
mcludes
. Grocery stores
. ProfessIOnal offices-medICal, legal, and financial services
. Restaurants
. Specialty retail
. Convemence retail
The mam challenges to gettmg commercial development m nodes are not
lack of demand, mcompatlble developments, or poor locatIOns Rather, the
challenges are primarily about changes m design and the commercial
Viability ofthose changes The mam design changes nodal development
reqUIres, and the ones most dIfficult m today's market, relate to
transportatIOn auto access and parkmg, and pedestrian and transit
orientatIOns
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 3-15
Page 3-14
developments The share of regIOnal development m no les shown III Table 3-
illS an assumption by ECONorthwest and Leland Consultmg Group based
I
on demographic and economiC trends III the regIOn and development patterns
I
observed m other metropolitan areas The share of potential development III
I
nodes IS expected to Illcrease m the 2001-2015 period because demographic
,
and economic shifts deSCribed earher III this chapter are expected to mcrease
demand for smaller alternatIve reSidential products I
The Market Demand Study for Nodal Development did not Illclude a
forecast for the potential share of reSidential demand m Snrm!!field nodal
development sites Sprlllgfield currently has about 28% of Eugene-
Sprlllgfield's populatIOn, has received about 20% ofthe regIOn's populatIOn
growth over the 1995-2000 perIOd, and has about 38% of the regIOn's
remammg resldentmlland
Table 3-11 shows the level of potentIal reSidential demand m Sprmgfield
nodal development sites assumlllg It gets a "fair share" of regIOnal
development based on Sprmgfield's share of populatIOn, populatIOn growth,
and residential land supply This table shows that reSidential demand m
Springfield nodal development sites could range from 50 to 96 umts per year
If the city receives ItS "fair share" of nodal development
Table 3-11 Potential reSidential demand In nodes
by structure type In Springfield, 2001-2015
Units oer Year
20% of 28% of
RegIon RegIon
19 27
8 11
23 32
50 70
Structure Type
Single-family detached
Single-family attached
ADartments
Total
38% of
Region
37
16
43
96
Source ECONorthwest
Note that these are rou!!h estimates for an avera!!e annual amount
resldenb~.l. development that might occur III all nodes m SOrln!!field (not Just
the SIX that are the focus ofthls study) over the long-run Nonetheless, they
prOVide some boundaries for the amount of development one might see m
Sprmgfield nodes In the short-run, It IS pOSSible that the numbers could be
even lower In the longer run, proJects III Rlverbend might add over 100 umts
III a year m Just that node OUl Judgment IS that the hileiy range IS 01 ound an
average of 40 to 80 dwelhng unIts per year In the SIX Spnngfwld nodes
1
The Marilet Demand Study for Nodal Development did not mclude a
I
forecast for the potential share of commercial development m nodes That
I
study concluded that total demand for commercial development m the regIOn
,
would create opportumtIes for commercial development m nodes Commercial
demand from employment growth III the Trade, Flllance,IInsurance, Real
Estate, SerVices, and Government sectors totals 9 5-15 0 mllhon sq ft over
the twenty year perIOd, an average of 475,000 to 750,000'sq ft per year
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
Eugene's supply of commercial land IS adequate for expected commercial
development over the plannmg period
Industrial development IS usually not compatIble with nodal development
because It IS tYPically land-mtenslve (low density) and needs to be segregated
from other uses because of nOise and emiSSIOns Industrial land supply IS
relevant to a discussIOn of regIOnal land supply conditions because mdustrlal
land IS frequently re-zoned for other uses The Eugene-Sprmgfield area had
about 2,500 acres ofland m 1997 zoned for mdustrlal uses, while demand
was estImated to total 400-700 acres through 2020 '
This surplus of mdustrlalland, the potentIal shortage of residential land,
and apparent shortage of commercial land m Sprmgfield suggests that some
mdustrlalland III the regIOn might get re-zoned for other uses
IMPLICATIONS FOR DEVELOPMENT IN SPRINGFIELD
NODAL SITES
The share of residential demand that could potentially occur m nodal
development was estImated m the MOl !let Demand Study for Nodal
Development m 1996 c This estimate IS shown m Table 3-10 Residential
demand for smgle-family detached, smgle-famlly attached, and apartments IS
expected to average 1,530 umts per year over the 1996-2015 period'
Table 3-10 Potential reSidential demand In nodes by structure
type In Eugene-Springfield, 1996-2015
Total I 199652000
Annuall Percent Units
Units In Nodes per Year
720 8-12% 72
180 15-20% 32
630 12-16% 88
1.530 192
Structure Type
Single-family detached
Single-family attached
Acartments
Total
200152015
Percent Units
In Nodes per Year
12-15% 97
20-25% 41
16-20% 113
251
Source Leland Consultlng Group and ECONorthwest, Market Demand Study for Nodal Development
October 1996
Note shaded cells Indicate assumptions by ECONorthwest and Leland Consulting Group
Table 3-10 shows the share of regIOnal residentIal development by
structure type that can reasonably be expected to locate m nodal
5 lndustnalland supply and demand estImated by ECONorthwest, West Eugene Parkway /ndustnal Lands Analysts,
1997 We note that several dungs have changed regardmg mdustnal supply ill the last five years (e g , land consumptIOn
by development, Increasmg envrronmental constramts) Moreover, at the state level there IS Increasmg concern that
though the amount ofmdustnalland mIght be adequate III some aggregate, long run, planmng sense, the short run
supply of development ready parcels, espeCIally large ones, may be constramed That, however, IS not a concern for thIS
study on nodal development
6 ECONorthwest and Leland Consultmg Group for the Lane CounCIl of Governments, October 1996
7 The estimate of 1,800 umts per year m Table 3-3 mcludes manufactured homes Manufactured homes were not
mcluded In Table 3 11 because they are not consldered smtable for nodal development
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 3-13
Page 3-12
. Dechnmg availability of large greenfield sites at key mtersectlOns may
lead some big-box retailers to consider smaller lllfilllocatlOns m
estabhshed or emerglllg centers
. Retail development will occur to serve growmg residentIal areas Small
specialty retail shops, convelllence stores, and some (grocery stores could
be mtegrated mto nodes
,
. Employment growth m the Service and the Fmance, Insurance, and Real
Estate sectors will generate demand for office space 'that could be
llltegrated mto nodes I
LAND SUPPLY
Eugene and Sprmgfield have conducted separate studies of commercial
land supply and demand' These studies were conducted at different times
and forecast demand for development over different peuods Supply and
demand conditIOns for commercial land m the Eugene-Sprmgfield UGB are
summarized m Table 3-9
I
Table 3-9 Commercial land supply and demand m the Eugene-
Sprmgfleld UGB
Eugene Spnngfleld
UGB UGB Total
Commercial Land Supply (acres) 702 97 n/a
Year of SUI:!Dlv Estimate 1990 1999 n/a
Commercial Land Demand (acres) 532 255 n/a
Demand Forecast Period 199082010 199582015 n/a
Commercial Land Demand (acres/year) 27 1275 3975
Commercial BUlldlna Demand (sa fllvear) 294,000 185.000 479,000
Sources City of Eugene Eugene Commercial Lands Study, October 1992 City of Springfield Development
Services Department Sprmgfleld Commercial Lands Study 2000 I
Note CommerCial BUilding Demand assumes an average floor-area ratio for commerCial development of 0 25
Sprmgfield had 97 bUildable commercial acres as of 1999, 31 ofthese
acres, however, have smce been developed by Wal-Mart; leavlllg 66
commercial acres Sprmgfield estimated demand for commercial land totaled
255 acres over the 1995-2015 period, or an average of 1275 acres per year
ThiS level of commercial land demand translates to 185,000 sq ft of
development per year assumlllg an average 25 FAR (floor-area ratio) ThiS
level of proJected demand would exhaust Sprmgfield's supply of commercial
land m about five years I
I
Eugene had 702 acres of commercial land as of 1990! and estimated
demand for commercial land at 532 acres over the 1990+2010 perIOd or about
27 acres per year ThiS level of demand translates to 294,000 sq ft of
I
development per year assummg an average 25 FAR (floor-area ratIo)
'City of Eugene, Eugene Commerc<at Lands Study, October 1992 City ofSprmgfield
Development SerVlces Department, Spnngfteld Commercwl Lands Study, 2000
I
I
February 2003
ECONorthwest
Springfield Nodes Market AnalysIs
and Development Strategy
.
Table 3-8 Commercial and industrial development demand In
Eugene-Springfield, 1995-2015
Employment Sector
Manufacturing
Trans, Comm , & Utilities
Wholesale & Retail Trade
Finance, Ins, Real Estate
Services
Government
Other
Total
Employment
Growth
11,080
950
7,760
2,090
17,870
5,640
750
46,140
Sq Ft Development
(millions)
44-78
o 2-0 3
31-54
o 5-0 8
45-71
14-17
02
144-234
Sq Ft per
Employee
400-700
250-300
400-700
250-400
250-400
250-300
250-300
Source ECONorthwest employment forecast from Lane CounCil of Governments and sq ft per employee
from (Portland) Metro Employment Density Study (June 1990)
DEVELOPMENT ACTIVITY AND TRENDS
The bulK ofrecent commercial development m Eugene-Sprmgfield has
occurred m the urban frmge, typically m the form of big-box retail, shoppmg
center, and mall development that IS dependent on auto access Areas where
this development IS occurrmg mclude
. Gateway Mall area
. Chad DrlVe/Coburg Road
. Barger Drive at Beltlme
. Marcola Road at Mohawk
. West 11th Avenue
All ofthese areas are well-served by arterial roadways and are near a
freeway
Some mfill development has occurred m the Downtown and Ferry Street
Bridge areas of Eugene that would be sUitable for nodes
. Ram's Head bUlldmg at 13th and High, a series of small shops on the
Sidewalk With parkmg behmd bUlldmg
. StatlOn Square at 5th and Pearl, ground floor retail With offices above and
parkmg m back
. RenovatIOns and expanSlOns at the Oakway Mall and Sheldon Plaza
. Neighborhood-scale grocery stores and markets show that small-scale
retail can be economically Viable
This suggests that some of the commerCial development that will occur m
Eugene-Sprmgfield could work m nodes
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 3-11
.'
Page 4-2
. Description ofthe development potential as envisioned by the site
development plan,
. Assessment of the development vision, and
. Review of implementation issues raised by the concept plan.
The concept plans reviewed in this chapter apply to neighborhood areas
that are typically larger than the nodal development site boundaries
established by the City of Springfield. One of our purposes in reviewing these
concept plans is to describe the type and scale of development they envision
for the area. However, concept plans typically provide only a general
description of the types of developments that could happen in the study area,
and do not dictate or require specific developments on specific sites. In this
context, we will use the general description in the concept plan to identify the
type and scale of development the plans envision for the nodal development
sites.
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
.,
SITE EVALUATION BY NODE
DOWNTOWN SPRINGFIELD
Downtown _.
Zoning Mop
-......
~_.-
lfto__
_8clCIIhk~"""'",",
..."'-'-
..LMl'C(:....HUMLMI&CC
_~R..~
_&DtcllIItIIMo',~
''''
_"",,~yll___
_......... o..tylt.......
.... OwNly "'.-11..
=--
- "J>."'.,=-
_Ji-:CC'~UM
_LI(tlI~1l'lduIlnII
... <o>>M_
_SooKlIII.......,..........
.----
_l'\.dIcltnil&~eo.e.
... ~1(eI)''''''UM
.......-
-c:....y&....~
500 0 W tlIOl) r..
Source: City of Springfield.
Figure 4-1 shows the boundaries of two nodal development areas
identified in TransPlan in the downtown Springfield area (as well as the
southern portion of the Mohawk nodal development area, which is described
later in this chapter). The analysis in this chapter considers only the western
nodal development area shown in Figure 4-1. This nodal development area
includes Island Park and Springfield's traditional city center.
CURRENT ACTIVITY AND DEVELOPMENT
Role of downtown in regional economy
Downtown Springfield serves as a regional subcenter for government and
specialty retail activity. A downtown is typically the political and economic
center of its region, but downtown Springfield does not completely fit this
typical role because it is part of the larger Eugene-Springfield metropolitan
area where downtown Eugene serves as the regional center. Downtown
Springfield is a location for government services, including Springfield's City
Hall (which includes the library), Springfield Police station, some state
offices, and a U.s. Post Office. Commercial activity in Downtown Springfield
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-3
The concept plan notes that both Sprmgfield and Eugene downtowns have
lost market share for retail and office development Retail m the metro regIOn
IS currently polarized between big-box and specialty, arid both markets
I
appear saturated m the current economy Most recent retail development has
been for grocelY stores and related busmesses Office space has decentralized
to suburban locatIOns, and mIXed office/mdustrlal flex space IS becommg more
popular m the market Most new office development IS owner-occupied or pre-
leased-there IS httle speculative office space bemg bUilt m the current
market
The SSSAP antIcipates that suburbamzatlOn may slow down With
mcreasmg costs of public facilities, traffic congestIOn, slow process of
expansIOn ofUGBs, public pohcy changes that encourage mixed-use and
mcreased density, demographic shifts, and an mcreased demand for
convemence These trends may mcrease demand for residential, retail, and
office development m central locatIOns such as Downtown Sprmgfield
,
Downtown has a number of competitive advantages: mcludmg ItS central
locatIOn, classIC "Mam Street" pattern, historic bUlldmgs, specialty retail
stores, free parkmg, and a pleasant settmg Downtown Sprmgfleld IS
centrally located m the Eugene-Sprmgfield regIOn and has good access to
regIOnal transportatIOn facilitIes and centers Downtown has close access to 1-
5 Via McVay Highway and Glenwood Boulevard as well as qUick connectIOns
to the Gateway and RlVerbend areas via PIOneer Parkway and to Downtown
Eugene and the Umverslty of Oregon via Franklm Boulevard Close
proximity to the Wlllamette riverfront IS an aesthetic asset
Low rents and property values m Downtown Sprmgfield are both an
advantage and a barrier to redevelopment On the posItive Side, Downtown
provides low-cost space for small start-up and locally-owned busmesses In
additIOn, a motivated developer can acqUIre properties m Downtown for a
small mvestment compared to prices m other commercial areas m the regIOn
The low rent rates and property values, however, make It difficult for
buildmg owners to recover any mvestment m redevelopment or even modest
buildmg Improvements
There IS an ongomg effort by commumty leaders to revitalize Downtown
The Sprmgfield Renaissance Development CorporatIOn (SRDC) has recently
been successful m securmg fundmg the renovatIOn ofthe Gerlach Buildmg
I
and the McKenZie Theatre The SRDC hopes to attract people to Downtown
through the estabhshment of an active cultural district that mcludes eateries
and entertamment estabhshments Given the advantages m Downtown
Sprmgfield, revltahzatlOn efforts have a chance to mcr~ase property values
t
and rent levels relative to other regIOnal centers, which would help to attract
additIOnal commercial development I
ASSESSMENT OF THE DEVELOPMENT VISION i
Downtown Sprmgfield currently has many of the ch~racterlstIcs of nodal
development-relatIVely high-density development, a mIX of retail, office,
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 4-7
proposed downtown node fall mSlde of the boundaries ofthe Washburne
Historic District This will prevent redevelopment of these propertIes, but
that will not mterfere with nodal development Downtown because It mvolves
only a few properties at the edge ofthe nodal development area
Downtown Sprmgfield IS currently well-served by bus transit The
planned Sprmgfield StatIOn will relocate the current Downtown transit stop
with an Improved StatlOn on South A St A number oftranslt, pedestrian,
and bicycle Improvements will enhance the role ofthe StatIOn Bus Rapid
Transit (BRT) IS expected to operate between downtown Eugene and
Sprmgfield StatIOn by Sprmg 2004 BRT will operate buses partially on
exclusive guideways and give buses prlOrlty when sharmg automobile lanes
Bus servIce m Downtown Sprmgfield IS expected to double by 2020 Plannmg
IS ongomg to Improve pedestrian circulatIOn and enhance street crossmgs for
pedestrians
DecoratIve lightmg IS envIsioned m downtown to Identify It as a special
place Bicycle connectivity from Sprmgfield StatIOn and the PlOneer Parkway
multi-use path IS encouraged AdditIOnal roadway Improvements Identified m
the plan mclude upgradmg the 4th StreetlMam Street mtersectlOn to City of
Sprmgfield operatIOns standards, a right-lane turn lane from Mam Street to
PIOneer Parkway East, and correctIOn of the weavmg and queue sPlllback
problem on South A Street
BUildable and redevelopable lands
The vast maJority ofland m downtown Sprmgfield IS developed Table 4-1
shows the mix of developed acreage by zone Accordmg to Lane County
assessment data, Just over 15 acres (16%) ofthe land m downtown
Sprmgfield IS vacant' However, the maJority of the vacant land (54%) IS
zoned pubhc and IS park land along the Willamette RIVer and two small
parks Of the remammg vacant land, less than five acres IS zoned
commercial, and approximately two acres IS zoned residential Less than 3%
(28 acres) of the land m downtown Sprmgfield IS conSidered redevelop able 0
Market issues
The SSSAP noted a number of demographic, economiC, and residential
trends that affect market Issues Future regIOnal economic condltlOns
desCribed m the concept plan correspond with expected populatlOn and
employment growth, demographic shifts, and economIC conditIOns described
m Chapter 3 of thiS report
4 Vacant land 18 defined as haVIng an assessed Improvement value of $5,000 or less
~ To determme redevelop able land (1 e land that 18 developed but on whIch there eXIsts the potential for converSIOn to
more mtenslve uses), ECO compared assessor data land values and rmprovement values for all tax lots In Downtown
Sprmgfield Redevelopable tax lots are mmcated by an Improvement value that IS 25% or less of land value
Page 4-6
February 2003
ECONorthwest
Springfield Nodes Market AnalysIs
and Development Strategy
than 3% (2 8 acres) ofthe land m downtown Sprmgfield IS considered
redevelopable ,
Infrastructure and service
Downtown Sprmgfield has water, storm dram, sewer, and electrical
serVices The concept plan mdlcates that these services are adequate for the
current uses and should not need Improvements for the planmng pel10d
DEVELOPMENT POTENTIAL
Development vision
The Sprmgfield StatIOn Specific Area Plan (SSSAP) highlights a number
of key features for the VISIOn of downtown Springfield that relate to the nodal
development site' Five "anchor" areas are envIsIOned City HallfMam Street
Arts DiStriCt, Island Park Area, the North Borden property, Sprmgfield
StatIOn, and Booth Kelly The plan calls for redevelopment ofthe City
HallfMam Street parkmg lot mto a public space and parkmg court
AdditIOnally, an arts and cultural district IS envIsIOned between 4th and 7lh
Streets Streetscape Improvements are planned throughout downtown as well
as a proposal to redevelop South A Street as a parkway street
Current downtown land uses and the plans m the SSSAP are conducive to
the apphcatlon of the TransPlan commercial center mixed-use designatIOns
The SSSAP envIsions a pedestrlan- and transit-friendly node that mIXes
office, commercial, reSidential, and CIVIC uses There IS an emphasIs on
creatmg both small and large pubhc plazas and connectmg the downtown to
natural resources mcludmg the Millrace and Island Park Mixed uses are
already zoned and planned for m downtown to a limited extent Government
use, mcludmg City Hall, provides an anchor for downtown Currently, 1- to 3-
story bUlldmgs are downtown The plan calls for any new bUlldmgs to be bUilt
as 2- to 3-story bUlldmgs to mcrease density and support transit
Physical constraints
The concept plan did not Identify any phYSical constramts to development
m Downtown Sprmgfield
Infrastructure capacity :
I
Public utilities mcludmg water, storm dram, and sewer were determmed
I
as bemg adequate for the proposed site development plan and should not
,
hmder nodal development m the area Approximately SIX blocks of the
I
I
I
2 To determme redevelopable land (1 e land that IS developed but on whlch there eXIsts the potentlal for converSIOn to
more mtenSlve uses), ECO compared assessor data land values and Improvement values for all tax lots III Downtown
Sprmgfield Redevelopable tax lots are mdlcated by an Improvement value that 18 25% or less of land value
'Otak, Sprtngfteld Statton Spectftc Area Plan Plan Report, July 2001, p 1
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 4-5
IS dommated by specialty retail, restaurants, bars, and auto-related
busmesses such as new and used car sales, repair, and accessories
Downtown Sprmgfield IS developed m a traditIonal pattern with a street grid,
alleyways between blocks, and bUlldmgs that face the sidewalk with street
parkmg
Current land use
The City of Sprmgfield has an actIve downtown core with a variety of
commercial, retail, and CIVIC uses along the couplet formed by Mam and
South "A" Streets (Oregon Highway 126 Busmess Route), whICh run through
downtown Table 4-1 shows a land use zomng by acre wlthm the node site
shown for Downtown Sprmgfield m TransPlan Commumty Commercial IS
the predommate use, with over 60% of the land zoned commercial
ReSidentIal uses trail far behmd with a total of 27% of land zoned low,
medIUm, or high density reSidential The majority of the pubhc land and open
space zoned land IS located along the banks ofthe Wlllamette River
Table 4-1 Acres of land by zone and development status,
Downtown Spnngfleld
Zomnq
Low-DenSity ReSidential
Medium-DenSity ReSidential
High-Density ReSidential
Community Commercial
PubliC
Total
1m Droved
161
44
20
491
39
756
RedeveloD
Vacant
07
17
47
83
153
28
Total
168
61
20
566
122
937
28
Source City of Spnngfield 2002
BUlldmgs m Downtown Sprmgfield are 1- to 3-storles and have a mIX of
uses mcludmg commercial, reSidential, retail, and office Buildmg design and
placement varies, most bUlldmgs are bUilt out to the sidewalk, while others
at the frmge of downtown have parkmg lots between the buildmg and the
road There IS a mIX of newer buildmgs among older bUlldmgs Many older
bUlldmgs are m need of mamtenance
The vast maJority ofland m downtown Sprmgfield IS developed Table 4-2
shows the mix of developed acreage by zone Accordmg to Lane County
assessment data prOVided by the City of Sprmgfield, Just over 15 acres (16%)
ofthe land m downtown Springfield IS vacant' However, the maJority ofthe
vacant land (54%) IS zoned pubhc and IS park land along the Wlllamette
River and two small parks Of the remammg vacant land, less than five acres
IS zoned commerCial, and approximately two acres IS zoned reSidential Less
I Vacant land IS defined as havmg an assessed Improvement value of $5,000 or less
Page 4-4
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
Glenwood Nod.
Zoning Map
CNOdte~
DT_lotl
_1JItl....G~louncIarw
~l~-"Mt
tii!t8ooalK..,.Mut4U..
SIll! Comouo.......
_UlllIICC....OV..LMI.tc
g:-,RtWC~
t=.oac-...~y~
_Hqlo.n.t,,,........
_ "'*""'" o.rMyR.......
Low Deftsty R.,.....
_eo...........-IyC_WtIII
=~~'IlJ'f.c;;;;;;'..
_ Ultcc~.d U..
_lJghI.........1ncMIn8l
,.. Ctmpul N.lSrnII
_ ~"-y1rIUNI
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.... a.:.a..K.,W....:lU..
_~on.e.
_O""".,.M_~
3llD 0 _ I0Il,...
___._iiiI
Source: City of Springfield.
CURRENT ACTIVITY AND DEVELOPMENT
Role of the Glenwood area in the regional economy
Glenwood is a primarily unincorporated area, separated from Springfield
by the Willamette River on the north and east, and from Eugene by 1-5 on the
west and south. Glenwood is centrally located in the metropolitan region,
between downtown Eugene and downtown Springfield along Franklin
Boulevard (Oregon Highway 126 Business Route), a primary east-west link
in the region. Traffic on Highway 126 generates significant exposure for
businesses, which has attracted auto-oriented strip development. 1-5 access
from Glenwood Boulevard and McVay Highway Ave., along with low land
values, has made Glenwood attractive for low-density industrial and
distribution uses that rely on access. Glenwood is home to two important
regional facilities: the Glenwood Solid Waste Transfer Station and Lane
Transit District offices and maintenance facility.
Current land use
Land uses in Glenwood are a mix of industrial and strip commercial USes
along arterial roadways, with residential uses including mobile home parks
in interior areas. Most developed areas in Glenwood lack sewer and
stormwater service, curbs, sidewalks, and similar urban-level improvements.
Stormwater drainage in Glenwood is currently provided by a series of natural
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-9
Page 4-8
public, and residential uses, and a pedestrian environment well-served by
transit service.
Current rent levels in downtown Springfield are not sufficient to justify
new development, redevelopment, or substantial renovation of buildings in
the area. In other words, if a developer were to build new or renovate, the
likely rents would not be sufficient to COver costs and provide a market rate of
return. This is why Downtown Springfield has not seen any substantial
development in the last 25 years. Rents in other parts ofthe metro area,
however, are sufficient to support new development, redevelopment, or
renovation. Development activity in Downtown Springfield is possible if rents
there reach parity with rents in other parts of the metro area.
IMPLEMENTATION ISSUES
Only minor changes to existing land use plans were recommended in the
SSSAP. One major exception was recommended mixed use changes to the
Springfield Downtown Refinement Plan. The recommended amendments
emphasize a focus on revitalization through mixed use. Additional
recommendations encouraged explicit policies prioritizing downtown as the
place for public and governmental buildings. Residential uses are encouraged
close to transit with 15 dwelling units per acre recommended around the
Springfield Transit Station.
Recommended amendments to the Springfield Development Code have
been completed. The City of Springfield has adopted a Nodal Development
Overlay District and Mixed Use Commercial District.
The plan encourages visible, short-term projects to show momentum
towards revitalization. This can be done by leveraging the Springfield Station
project as a catalyst for further development and supporting ongoing
activities ofthe Springfield Renaissance Development Corporation.
GLENWOOD
The Glenwood nodal development area is in the eastern portion of
Glenwood along the Willamette River, north of Franklin Boulevard and east
of McVay Highway. The location ofthe Glenwood nodal development area is
shown in Figure 4-2.
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
water runoff cannot be piped directly mto the Wlllamette River due to the
Clean Water Act and ESA 4(d) rule prOVISIOns Physical constramts,
primarily the proximity of the WIllamette River, may not allow on-site
detentIOn and filtratIOn of water, as IS done with storm water III many large
developments Increased costs associated with provldmg stormwater
dramage may constram development or redevelopment of some sites One
solutIOn IS to connect the area to the southern Glenwood dralllage system,
however, this will reqUIre mvestment by the City or private land owners The
City IS currently planmng to construct storm water connectIOns for the
northern portIOn of Glenwood at the same tIme as extensIOn of the sewer
trunk lme under Franklin Boulevard
DEVELOPMENT POTENTIAL
Development vision
The Glenwood area IS the subJect of an ongomg planmng process The
Glenwood RWe7 front SpecLflc Area Plan, developed m 2000, envIsIOned a
mixed use development that would be primarily reSidentIal with some office
and retail uses Development m Glenwood north of Frankhn Boulevard will
reqUire development of streets and paths to faCilitate mternal circulatIon
ThiS development VISIOn has been refined m the subsequent plan document
for the Glenwood area-the Glenwood SpecIfIc AI ea Plan Phase 2 Task 1
report Figure 4-3 shows the current development concept for the Glenwood
Rlverllont area
The area shown m Figure 4-3 IS smaller than the nodal development area
deSignated III FlgUle 4-2 The current development concept area omits the
mdustrlally-zoned propertIes west of Lexmgton Avenue that are mcluded m
the nodal development area shown III Figure 4-2 These properties were
omitted from the current planmng effort because the property owners do not
wish to redevelop
Table 4-3 shows the mix of development by type anticipated m the
Glenwood Riverfront area at full bUild-out Table 4-4 shows that the
Glenwood Riverfront area has the potential for 850 reSidentIal umts and
135,000 sq ft of commerCial development
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 4-11
Page 4-10
swales and sloughs The mdustrlal corridor along Glenwood Boulevard
between 1-5 and Franklin Boulevard IS the one area of Glenwood that has
Improved mfrastructure Street/sidewalk, sewer, and stormwater
Improvements have been completed m recent years to Serve the Lane County
Solid Waste Transfer site and Lane Transit District bus and admlmstratlOn
complex
The nodal development site IS m the eastern portIOn of Glenwood along
the Wlllamette River It consists of an mdustrlal storage yard, mobile home
park, a swath of vacant riverfront land north and south ofthe Mam St
bridge, and a mIX of small residentIal and other retail uses
Redevelopment and mtenslficatlOn of uses m Glenwood has been
thwarted due to lack of samtary sewer serVice Most low-value uses were
built With low-quahty constructIOn Many bUlldmgs are m varymg states of
deterioratIOn, whICh may make redevelopment of eXlstmg structures difficult
Table 4-2 shows land use by zone Over half ofthe land IS currently zoned
as Commumty Commercial, and another third IS zoned Light-MedIUm
Industrial Residential uses make up only 10% of zoned land m the Glenwood
nodal development site
Table 4-2 Acres of land by zone and development status,
Glenwood
Zomnq
Low-Density Residential
Community CommerCial
Liqht-Medlum Industrial
Total
Source CIty of Spnngfield 2002
Improved
58
145
133
336
178 16
15 46
192 62
Vacant Redevelop
Total
58
338
193
590
Infrastructure and services
The Glenwood area IS not connected to city sewer or storm dram systems
Properties currently rely on on-site septIc tanks for sewage A sewer trunk
lme IS located under the western portIOn of Franklin Boulevard and could
service properties as far east as Myrmo & Sons, which IS outside and Just east
ofthe nodal development area SerVice farther east-m the nodal
"-
development area-Will reqUIre extensIOn ofthe trunk lme under Franklm
Boulevard east to McVay Highway The constructIOn of a 24-mch trunk Ime
along the eastern portIOn of Franklm Boulevard to the railroad overpass'of
McVay Highway IS mcluded m Springfield's 2000/2005 Capital Improvement
Program The tImmg of this proJect IS bemg discussed now, and will most
likely be m Summer 2004
The portIOn of Glenwood north of Franklm Boulevard IS not currently
servICed by storm dram service Dramage IS currently handled naturally or
by pipe to the slough on the north Side of the railroad tracks Accordmg to
ODOT, the storm dram line that eXists under Frankhn Boulevard IS at
capacity and IS not available to service other propertIes m Glenwood Storm
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
The Glenwood Riverfront Specific Area Plan determined that residential
and office/industrial flex space is the most likely type of development in
Glenwood within the next 5 to 10 years. A base of residents and employment
in the node will help attract retail activities.
Physical constraints
Portions of the proposed node along the riverfront are in the 100-year
floodplain, where development is severely restricted. Potential rulings to
protect endangered species habitat may require additional riverfront
setbacks, further restricting the amount ofland available for development.
Infrastructure capacity
There are a number of infrastructure constraints to the proposed
Glenwood nodal area. The City of Springfield is currently working with the
Oregon Department of Transportation (ODOT), Lane Transit District (LTD),
and Springfield Utility Board (SUB) to coordinate several planned
infrastructure improvement projects in the Glenwood area. These projects
include:
. LTD Bus Rapid Transit, construction Summer 2003 beginning service
September 2004
. ODOT bridge preservation, August/September 2003
. City extension of sanitary sewer under Franklin Boulevard, Summer
2004
. City construction of storm water crossings under Franklin Boulevard,
concurrent with sanitary Sewer project
. SUB water line improvement, February 2004
. ODOT overlay of Franklin Boulevard, September 2004
. ODOT sidewalk infill, 2004 or 2005 (depends on funding availability
and right-of-way negotiations)
These projects, particularly the extension of sanitary sewer and storm
water service, will allow property owners to annex to the City of Springfield
and subsequently develop or redevelop their properties. For this reason it is
important that the City adopt a plan and establish zoning designations in the
area to ensure that any development is compatible with the nodal
development envisioned for the area.
On-site infrastructure improvements will be needed in the Glenwood
Riverfront area to accommodate nodal development. The Glenwood
Riverfront Specific Area Plan recommended a parallel collector north of
Franklin to provide access to riverfront property and to act as a "main street"
for the node with slower traffic. This parallel collector is included in the
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-13
Figure 4-3. Development concept for the Glenwood Riverfront area
---
- .'-"-
-.._--
- .
- - ---.-..-'0
0::;::::1 ___.___
- .. """---.-
-
-..-.--
----
-..---
- ------....
IIYEIFIDIT HTElIlTlYE PUI:
Glenwood Riverfront Specific Ar.. Plan
---l!I ....----
~-----
......~
~ ---
- ---
------
---
Source: Poticha Architects et. al.. Glenwood Specific Area Plan Phase 2 Task 1.
Table 4-3. Proposed development program
for the Glenwood Riverfront
Development Type I Amount I Description
Multi-Family Units
482 For-rent apartments (355 story buildings)
184 For-sale 2-storv condominiums
Single-Family Units
100 1,440 sq. ft. rowhouses
84 1.800 sq. ft. rowhouses
Commercial Sq. Ft.
80,000 Riverview office
25,000 Riverview restaurant
301000 Franklin Boulevard commercial
Tota s
666 Multi-family units
184 Single-family units
850 Residential units
135.000 Sa. ft. commercial
Source: ECONorthwest, Glenwood Riverfront Specific Area Plan, 2000.
Page 4-12
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
it is important that the City adopt a plan and zoning designations for the
Riverfront area that will ensure that development is compatible with nodal
development.
Resolution of transportation issues along Franklin Boulevard is crucial
for the redevelopment ofthe Glenwood Riverfront area. While the site
development plan calls for a new street north of Franklin Boulevard to
provide interior aCCess and circulation, Franklin Boulevard will continue to
be the major arterial for the Glenwood Riverfront area even if this new road
is built. Franklin Boulevard currently unattractive and suffers from poor
pedestrian and bicycle accesS due to a lack of sidewalks, a lack of bike lanes,
and utility poles along the roadway edge. The City is currently working to
coordinate multiple improvement projects on Franklin Boulevard that will
improve its appearance and provide better pedestrian and bicycle access.
Subsequent development in the Glenwood Riverfront area should seek to
allow commercial businesses in the area to be visible from traffic on Franklin
Boulevard.
ASSESSMENT OF THE DEVELOPMENT VISION
Given Glenwood's central location in the metropolitan region and the
amenity offered by a riverfront site, development and redevelopment ofthe
area is very likely to occur. It is only matter oftime, but time is a key
question: will the redevelopment begin in two years or ten? Our assessment
is that though some smaller new development might take place once Sewer
and the BRT are in place, larger scale redevelopment is at least five years
out. That conclusion is supported by the likelihood that redevelopment
probably cannot occur with additional public money, and public money is in
bad shape now (January 2003) and not likely get in good shape quickly.
Development ofthe mostly-vacant eastern portion ofthe nodal
development site is likely to occur first, after provision of sewer service in the
area. Multi-family residential is the most likely type of development to occur
first, but the high-amenity riverfront site may attract office uses, lodging, or
a public facility.
Redevelopment of areas that are currently built up will take place over
time as rising land values, increased fees and taxes, development pressure,
and life-cycle changes slowly make these parcels available for other uses.
Barring intervention by a well-funded developer who assembles parcels into a
large development site, creating a truly mixed-use area will likely be an
incremental process, not achieved in one fell swoop.
IMPLEMENTATION ISSUES
Implementation actions identified in the Glenwood Riverfront Specific
Area Plan include the following:
. Adopt a Specific Area Development Plan to create a cohesive vision for
the Glenwood area. This Plan should include participation of property
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-15
~_.
Page 4-14
development program shown in Figure 4-3. Local sewer, storm water, and
utility connections will also be necessary for development in the area. These
improvements will be funded primarily by private property owners or
developers in the area. Pedestrian and bicycle paths in the area, particularly
along the riverfront, may be funded by the public sector.
TransPlan includes two transportation projects for the Glenwood area in
addition to the planned improvements listed above, but these projects are
both on the future project list (beyond 20 years). These projects would
improve the 1-5 interchanges at Franklin Boulevard and on the McVay
Highway. These projects, if constructed, would improve regional access to the
nodal site.
Buildable and redevelopable lands
For an urban site, Glenwood has a large amount of vacant and
redevelopable land. Table 4.3 shows improved, vacant, and redevelopable
land in the Glenwood node. The 25 acres (43%) of vacant and redevelopable
land represents the best opportunity for development in the nodal site.
Almost 70% of vacant and redevelop able land is vacant land zoned
Community Commercial. Less than 10% (5.83 acres) of the nodal
development area is zoned Low-Density Residential. (See Table 4-3)
Market issues
There are a variety of market issues that will affect development and
redevelopment in the Glenwood node. Parcel size, ownership, access,
environmental regulations, lack of sewer and storm drainage, and existing
land uses all limit development potential in the area. Nodal development is
likely to occur piecemeal due to the number of parcels , multiple ownership,
and existing uses.
Development in Glenwood is most likely to occur first on the vacant land
in the eastern portion of the nodal development site. Vacant land is cheaper
to develop because it does not require removal of existing development, and
much ofthe vacant land in Glenwood is held in large parcels with a few
owners. Development of vacant land in Glenwood, however, will require
cooperation between the few owners of large parcels and some owners of
neighboring small residential parcels to assemble a site, provide internal
circulation for cars and people, and create allowable access to Franklin
Boulevard. Redevelopment of parcels in the Glenwood Riverfront area is
likely because the provision of sewer and stormwater service will create
pressure for existing low-value, land-intensive uses to seek other locations.
Unfortunately for nodal development, strip-commercial development is a
possible threat along Franklin Boulevard. Fast food restaurants, gas stations,
and automobile dealerships have all flourished along other sections of
Franklin Boulevard, and local contacts said that these businesses are actively
seeking locations in Glenwood. These development patterns may appear in
Glenwood once sewer and storm water service is established. For this reason,
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
Figure 4-4. Jasper-Natron North and South nodal development areas
!
Natron Nod.s
Zoning ."p
"
,
--
c_....
--..-.-,
-U,l_
'---
M;tt--..__
...'--
'-'..:(__I..C:C
_...._~
m__....._
-
--
- ..........---
'---
---
_...._~
.._~
_I..:c__
_UIJIoI____
-'-- \
-~.....,~
-----
..................
_.........--
--.-
--.-...-
-. .-..
6.1
N (
Source: City of Springfield,
CURRENT ACTIVITY AND DEVELOPMENT
Role of the Jasper-Natron area in the regional economy
The Jasper-Natron area is located in the southeastern corner of the
Springfield UGB. The North node has small portions within the city limits,
and the South node is entirely outside of the city limits. Areas outside of city
limits are currently not served by transportation or utility services needed to
serve urban development in the area. The City plans to annex the
neighborhood including the nodal development areas when public services
are extended to the area.
The role of Jasper-Natron in the regional economy has not yet been
determined. As a primarily vacant area within the Urban Growth Boundary
but without urban services, the area is on hold for future urban development.
While future development in Jasper-Natron will be primarily determined by
economic opportunity, the area's future can be influenced by public policy-
primarily zoning and decisions about the location and timing of public
improvements.
Current land use
Tables 4.4 and 4-5 show land use in the Jasper-Natron nodal development
areas by zoning designation. Table 4-4 shows that the North node has a total
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-17
Page 4-16
owners and other stakeholders in the neighborhood. Many of the
implementation strategies listed below will stem from this plan. It is
crucial that the City adopt a plan and implement zoning in the
Riverfront area that will implement nodal development before
extension of sewer and stormwater service allows development in the
area.
. From a development perspective, a new street north of Franklin
Boulevard is the most desirable way to provide interior aCCeSs and
circulation, particularly in the eastern portion of the study area. If
such a plan concept is adopted, the City should require construction of
the relevant part of new street north of Franklin as a condition of
development.
. Franklin will remain the primary access arterial for development in
Glenwood regardless ofthe new street construction.. Transportation
aCCeSS from Franklin Boulevard will be critical both for development
and for creating a node in Glenwood. Nodal development can be
promoted by extending the existing street grid system across
Franklin-the existing right-of-way on N. Brooklyn is one possibility
for acceSS to vacant land in the eastern portion of the Riverfront area,
and acceSs for future redevelopment north of Franklin can be
consolidated at points directly across from streets south of Franklin.
. Provide sewer service by extending the Franklin Boulevard trunk line.
. Provide stormwater service to the nodal site by linking it to facilities
to the south of Franklin Boulevard.
JASPER-NA TRON
The City of Springfield selected two nodal development sites in the
Jasper-Natron area. We will refer to these areas as the North node and South
node. The location of the Jasper-Natron North and South nodal development
areas is shown in Figure 4-4.
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
arterial and collector roads will be needed to serve the development m the
Jasper-Natron area '
Public transportatIOn IS currently provided by three bus routes Route
#ll-Thurston, Route #8X-Thurston Express, and Route #9 I-McKenzie
Bridge
DEVELOPMENT POTENTIAL
Development vision
The Final Jaspel-Natron Spec'fLC Development Plan (FJNSD) was
mtended to plan for a mixed-use neighborhood with TransPlan's nodal
development concepts m mmd The obJective ofthe plan IS to "create a
umquely developed commumty (a "place maker") m Sprmgfield" that
mtegrates pubhc transit, orients to pedestrians and bicycles, encourages a
mIX of uses (residentIal, commercial, and employment) wlthm a 1/4 mile
radIUs, and encourages high density residentIal development (40 to 50
dwelhng umts/acre) near commercial centers
The F JNSD did not adhere to the potential nodal development areas
designated by TransPlan for the Jasper-Natron area Instead, the FJNSD
looked at the best location for commercial and high-density residentIal uses
m the Jasper-Natron study area, which IS bounded by Mt Vernon Road on
the north, Jasper Road on the west, Weyerhaeuser Road on the east, and the
urban growth boundary on the south The F JNSD did not adhere to the
TransPlan nodes m part because TransPlan did not take the Jasper Road
ExtensIOn mto account when locatmg the nodes adJacent to the eXlstmg
Jasper Road
The preferred alternatIve m the F JNSD called for a commercial and hlgh-
density reSidential center m the northern portIOn ofthe study area This node
IS bisected by the Jasper Road ExtensIOn, with a 5-acre mIXed-use
commercial core area on each side of the highway that have about 4 acres of
medIUm to high density residential land located m close proximity to the
commercial core areas This center IS planned to serve both a low density
reSidential area east ofthe JRE as well as a campus mdustrlal area located
to the west of the planned highway The proposed land uses m the FJNSD
preferred alternative are shown m Figure 4-5
The Plan deSCribes two alternatives for the northern commercial and
reSidential center Both alternatives would put the center at an mtersectlOn
on the Parkway, but the deSign of the center varies dependmg on the speed of
Parkway traffic With a 35-mph Parkway the center would be Immediately
adJacent to and surroundmg the mtersectlOn, while With a 55-mph Parkway
the center would consist oftwo separate areas set back from the Parkway
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 4-19
Page 4-18
of 144 acres, with 88% currently zoned for low-density residential
development Only 12% of the North node IS zoned for commercial or hlgh-
density residential development, which could be developed as mixed-use
center for the node 70% ofthe North node IS vacant or redevelopable,
mcludmg almost all land zoned for commercial and high-density residential
use
Table 4-4 Acres of land by zone and development status,
Jasper-Natron North
ZomnQ
Low-Density Residential
High-Density Residential
Commumtv Commercial
Total
Imoroved
41 6
Redevelop
Total
1261.
85
92
1438
Vacant
844
19
52
91 5
67
32
98
09
425
Source City of Springfield 2002
Table 4-5 shows that the South node has a total of 76 acres and IS a mix of
mdustnal (44%), low-density residential (33%), and commumty commercial
(24%) zones Almost 80% of the acreage shown m Table 4-5 IS considered
Improved, but this overstates the developed area m the South node because
many Improved parcels are large and will hkely subdivide as the node
develops
Table 4-5 Acres of land by zone and development status,
Jasper-Natron South
ZomnQ
Low-Density Residential
Community Commercial
Special Heavv Industrial
Total
Improved
115
160
329
604
Redeveloll
00
Total
247
180
329
756
Vacant
132
20
151
00
Source CIty of Spnngfield 2002
The 32 9 acres of Special Heavy Industrial land m the South node IS the
site of a sawmill and log pond that IS currently bemg used to dry wood veneer
that IS shipped to other locatIOns for processmg
Infrastructure and services
Because the Jasper-Natron site IS predommately undeveloped, almost all
mfrastructure and services need to be bUilt to accommodate proposed
development Needed mfrastructure mcludes new water supply, sewer
service, electriCity, storm dramage, telephone systems, and probably natural
gas There IS lrmlted telephone and electrical service to eXlstmg residences
and compames Water IS provided by wells and sewage by septic systems
There IS mlmmal dramage for storm water runoff, dramage ditches along
Jasper Road and Brand S Road appear to be the only runoff conveyance
features
Few roads currently serve the Jasper-Natron area EXlstmg roads mclude
57th Street, Mt Vernon Road, Jasper Road, and Brand S Road A system of
February 2003
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
was dropped from the Metro Plan in favor of a general description of nodal
development. The City of Springfield does not have any comprehensive plan
designations or zoning that could implement the "floating node" concept.
Figure 4-4 shows that land in this area is currently zoned for industrial and
community commercial use.
The southern node would also allow high-density residential development
up to 40-50 units per acre in the commercial zone. Unlike the northern node,
the southern site is offset from the east from the JRE. The southern node was
intended to provide a small mixed-use commercial center that would support
the residential and campus industrial land USeS called for at the southern
end ofthe Jasper-Natron Study Area.
A market analysis prepared for the F JNSD described both nodes as
functioning to serve their surrounding neighborhoods. These centers were not
designed to compete with the regional shopping centers already established
about two miles to the north at the intersection of the JRE and Main Street.
The western portion of the study area north of the Jasper Road Extension,
and a swath of the southern portion ofthe study area (including the existing
veneer mill site), would be designated for campus industrial development.
Land in this area is currently zoned as Light Medium Industrial and Special
Heavy Industrial use. The remainder of the study area would be designated
for low-density residential development.
Table 4-6. land use and build-out development by type in the Jasper-Natron
preferred alternative
Land Use T,,"oe
low-Density ~esidential
Hiah-Densitv Residel11i'll
Community Commercial
Camous Industrial
Wetlands
Road Riaht-of-Wav
Total
land Use
Acres %
481.5 60%
22.9 3%
20.1 2%
117.8 14%
142.1 18%
21.0 3%
805.4 100%
Build-Out Development
scel\~~\b scel\\~~~
450 450
120,000 160,000
1.155.000 1.155.000
nla nla
nla nla
nla nla
Net Density
Scenarill1 Scenari~ 2
7.0 10.0
28.9 28.9
0.2 0.3
0.3 0.3
nla nla
nla nla
nla nla
Source: The JO lNhite Company et. al., Final Jasper-Natron Specific Development Plan. June 1999. Figure and Table VlI-1.
Note: Residential development is in dwelling units and net density is in dwelling units per acre. Commercial and campus industrial
development is in sQ. ft. and net density is expressed as a floor-la-area ratio. Net density is based on an assuming that 32% of
development sites will be used for streets. circulation, ancllandscaping.
Table 4-6 shows the acres of land by land use type, and the amount of
development at build-out for the preferred alternative, based on the land use
diagram shown in Figure 4-5. Table 4-6 shows that low-density residential
land composes 481.5 acreS or 60% of the study area. Areas zoned for
community commercial and high-density residential center, including the
center on the Jasper Road Extension, compose 43 acres or 5% ofthe study
area. Campus industrial land composes 117.8 acres or 14% of the study area.
Wetlands, on which development is constrained or prohibited, compose 142.1
acres or 18% of the study area. The arterial roadway network will require 21
acres or 3% ofthe study area; these roads do not include local collector streets
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-21
Page 4-20
Figure 4-5. Jasper-Natron preferred alternative land uses and
proposed street system
~ ~l II 'dt~~\?:~
.
,~ /
Source: The JD V'Jhite Company et. al.. Final Jasper-Natron Specific Development Plan, June 1999. Mapping
by the City of Springfield.
Note: green shading indicates wetland areas.
~
L._ :
, --
l~
"-
J
\
I
~ I Jasper Nalron: Nodes
(,oncepl I"",an
\
y
if---:-
~
-
f
U
E
-. .
L
I
[
I
\
1'4-
,-
The preferred alternative would also designate two other areas for
commercial and high-density development. One of these areas is at the
northwest corner of the study area, on land already zoned Community
Commercial and High-Density Residential use. A "floating node" in the
southern portion of the study area was proposed to provide flexibility in
siting a commercial and campus industrial center outside of wetland areas. A
proposed a Metro Plan designation would have allowed a "floating node" to be
located within a general area to be specifically defined by a later refinement
plan. With the passage of Trans Plan in 2001, the floating node designation
February 2003
ECONorthwest
Springfield Nodes Markel Analysis
and Development Strategy
Page 4-22
or Illternal private drives that will be necessary to serve development III the
study area I
The F JNSD plan described two scenarIOs for development of the study
area that reflect different assumptIOns for the denSity of development m the
low-density residentIal zone ScenarIO I assumes the low-density residential
portIOn of the study area develops at an average of7 umts per net acre, while
ScenarIO 2 assumes that It develops at an average of 10, umts per acre Under
these scenarIOs that amount of high-density residential and campus
mdustrlal development IS the same but the amount of commumty commercial
development mcreases m Scenario 2 to reflect the larger populatIOn III the
study area Table 4-4 shows the level of development and resultmg net
denSity for each ofthese development scenariOS High-density residential
development III the study area IS assumed to reach a net denSity of 28 9
dwellmg umts per acre Commercial and campus mdustrlal development,
while substantial, results m relatIvely low-density uses with floor-to-area
ratIOs (FARs) of 0 2-0 3
Plannmg activIties have focused on the mcluslOn of a variety of elements
combmed to maXimize livability III Jasper-Natron Pedestrian and bICycle
connectivity IS envIsIOned and encouraged through deSign mechamsms
mcludmg narrow streets, bike lanes, wide sidewalks, street trees, curb
extensIOns, and on-street parklllg Bus routes will be extended throughout
the study area PreservatIOn of wetlands and utilizatIOn of these areas for
recreation will be provided
Physical constraints
The Jasper-Natron Site Development Plan Identifies 20 ammals and 9
plants that are hsted, endangered, threatened, critical, and speCieS of concern
by the Fish and Wildlife of the State of Oregon (ODFW) that may occur on
the Jasper-Natron site (accordmg to the Oregon Natural Heritage Program
database) No surveys have been conducted on the Site, but species have been
found wlthm two miles ofthe site Any projects completed m the area that
receive federal fundmg must comply with the Endangered Species Act (ESA)
If a listed, or proposed, threatened, or endangered speCieS, or theIr critical
habitat IS found on the site of a federally funded proJect, a bIOlogical
assessment must be conducted
The Jasper-Natron area contams more than 150 acreS of wetlands The
locatIOn of the northern node site IS outside of most ofthese wetland areas
As mentIOned above, the southern node site IS constramed by scattered
wetlands that will affect the final layout of future development Nodal
development can occur III the area by usmg the wetlands as open space
Infrastructure capacity
A system of arterial and collector streets IS needed to serve any
development m the Jasper-Natron area The proposed Jasper Road ExtenSIOn
(JRE) IS a Lane County road that will bisect the northern portion ofthe
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
Jasper-Natron area This roadway will connect the Eugene-Sprmgfield
Hlghway/Mam Street mtersectlOn to the north with Jasper Road near ItS
current mtersectlOn with Brand S Road The JRE will allow traffic travelling
between Sprmgfield and the Jasper/Pleasant HIll/Lowell area to the south to
more easily connect with the regIOnal highway system As currently
proposed, the JRE will be a 55-mph roadway with two mtersectlOns through
the Jasper-Natron study area The JRE will serve as the primary facility
connectmg Jasper Natron to the regIOnal transportatIOn network
The JRE will be bUilt m phases The fIrst phase will build from the
Eugene-Springfield Hlghway/Mam Street mtersectlOn south to 57th Street
The second phase would extend the first phase south through Jasper-Natron
to connect with Jasper Road Accordmg to ODOT staff, constructIOn of the
second phase of the JRE will add more traffic to the Eugene-Sprmgfield
Hlghway/Mam Street mtersectlOn than It can handle, reqUiring the
development of a grade-separated mterchange at that mtersectlOn Without
the second phase ofthe JRE, mternal roads m the Jasper-Natron area may
not have the capacity to support development of the area Thus, future
development m Jasper-Natron appears to be tIed to an expensive fix of the
Eugene-Sprmgfield Hlghway/Mam Street mtersectlOn ConstructIOn ofthe
JRE from Mam Street to Jasper Road IS mcluded m the financially
constramed proJect list m TransPlan ConstructIOn of an mterchange at the
Eugene-Sprmgfield Hlghway/Mam Street IS listed as a "future" unfunded
proJect m TransPlan
A system of neighborhood collector streets will also need to be developed
to serve development m Jasper-Natron An Illustrative network of
neighborhood collector streets m the study area IS shown m Figure 4-5 These
neighborhood collectors would be funded primarily by the City of Sprmgfield
and are mcluded m the TransPlan financlally-constramed proJect hst In
additIOn, mternal cIrCUlatiOn streets will need to be provided by mdlVldual
developments m the area These mternal circulatIOn roadways would be
provided by private developers All roads m the Jasper-Natron area should be
deSigned to facilitate pedestrian and bICycle cIrCUlatIOn
MaJor utility upgrades are needed to serYlce the proposed development m
Jasper-Natron The area IS not currently serviced by water or sewer serVice,
and both must be extended to the site to accommodate development The City
recently extended a sewer trunk lme along Jasper Road to 42nd Street, wlthm
1 3 miles of the site An additIOnal extensIOn of 2 3 to 3 miles of sewer trunk
lme IS reqUired to service new development A 1998 estimate of sewer
upgrades mcluded a trunk line at approximately $1 million per mile
(mlmmum) to deSign and construct A hft statIOn upgrade and related
Improvements at 57th Street estimated to cost $500,000 Fmally, several
collector sewer hnes Will be needed wlthm the site at an estImated cost of $1
million for 15,000 feet of collector service Total cost ofthe samtary service m
1998 was estImated to be $4 5 mllhon The City of Sprmgfield has set aSide
$1 75 million m ItS Capital Improvement Plan to match developer
mvestments m extendmg the trunk lme south along Jasper Rd to provide
sewer servICe to the Jasper N atron area City staff reported m the
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 4-23
Page 4-24
Prehmmary Staff AnalysIs of PotentIal Node Sites (2002) that matchmg
funds by developers and residents would hkely come only with the completIOn
ofthe Jasper Road ExtensIOn
,
Slgmficant water upgrades are needed to service new development The
Sprmgfield Utility Board (SUB) Water Department has recommended
servlcmg the area through the City's water system, as this would be less
expensIVe than servlcmg the area through groundwater wells The Site
Development Plan mdlcates the need to study the cost of connectmg to
transmiSSion lines that are to the north and west of the site at some dIstance
AdditIOnally, the Plan notes the need to Identify current wells and protect the
water quality to these wells The SUB estimated the costs of proVldmg water
to the site to mclude
. $500,000 to $1 millIOn for the transmiSSIOn line extensIOn
. $40 to $45 per Imear foot for distributIOn lmes off the transmiSSIOn
lme extensIOn
. $813 for mdlvldual water supply hookups for residences and
commercial busmesses
Storm water service IS also needed m the Jasper-Natron area The City IS
m the process of developmg a stormwater management plan for the City
This plan will likely reqUire treatment and detentIOn facilitIes that mclude
numerous dramage ditches and underground pipe system The 1999 Jasper-
Natron Specmc Development Plan estImated the cost of a storm water
system to mclude $3,000 per catch basm (250 catch basms), $40 per foot for
45,000 feet of underground dramplpes for a total proJect cost of $2 5 milhon
Approximately 10,000 feet of ditches for runoff Will be needed for an
additIOnal cost of $100,000
Electrical servICe IS prOVided m portIOns ofthe area, but slgmficant
Improvements to mcrease capacity are needed ExtensIOn of telephone hnes
and natural gas should be straightforward and no problems are antICipated
Buildable and redevelopable lands
I
Land use data m this analysIs IS based on the nodalidevelopment areas as
defined by TransPlan (see Flgure 4-4) The current zone designatIOn for the
northern node IS hght-medlUm mdustrlal (see Table 4-4), while the southern
node area IS currently zoned primarily for heavy mdustrial use (see Table 4-
5) Almost 88% ofthe northern node area IS zoned low-denSity reSidential,
while only 12% of the node IS dedicated to both high-denSity and commumty
commerCial zonmg Approximately two-thirds ofthe North node IS vacant or
redevelopable, which should facilitate mIXed-use development
The South node has a much higher percentage of land that has been
Improved compared to the North node Over 32 acres (44%) ofthe southern
node IS zoned speCial heavy mdustrlal and,ls Improved A httle less than half
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
(132 acres) ofthe low-density residentially zoned land IS vacant or
redevelopable, and there IS no medlUm- or high-density zoned land m this
node Ofthe 18 acres zoned commercial, only two are vacant The data In
Table 4-9, however, may overstate the developed area m the South node
Many Improved parcels In this node are large with only a small portIOn of the
parcel developed, and these large parcels will hkely subdivide as the node
develops
Market issues
The Jasper-Natron area exhibits many of the characteristics that make
greenfield development eaSier than redevelopment of Inner city parcels
Many of the parcels are large with relatively few land owners This will allow
for master planmng and mfrastructure development on a large scale
The F JNSD Identified the followmg market Issues for development ofthe
Jasper-Natron area'
. The prefelred alternatIve IS supportable but wIll reqUIre hIgher
reSidential denSItIes than detached smgle family reSidential dwellings
wlthm the Low DenSity ReSidential (LDR) District
. A variety of attached dwelling types should be permitted wlthm the
LDR zone through the standard City of Springfield subdivIsIOn and
site plan review process
. An average of lO-dwelling umts per acre should be developed wlthm
the Low DenSity ReSidential District
. The central commercial area IS located to optimize nodal development
. The Preferred alternative will create a frame work for future nodal
development and provide flexlblhty to adJust with future market
forces
. The market forces may be different when the Jasper Road ExtenSIOn
IS completed wlthm two years, and development plans may alter
proposed zonmg deSignations to conform to new market conditions
. Based on the market analysIs study, the Campus Industrial property
will be the most marketable type of mdustrlal property AdditIOnally,
Campus Industrial (CI) zomng provides the most compatibility with
surroundmg low denSity reSidential areas
. Pubhc Investment such as mfrastructure Improvements and sewer
extensIOn assistance will be necessary to most successfully market the
campus mdustrIal employment areas to perspective busmesses
'CIty of Sprmgfield, "Jasper Natron Specmc Development Plan" June 1999 p VJl 4
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 4-25
. The CI zoned property will have maximum 15% slopes to maXimize
development capacity
ASSESSMENT OF THE DEVELOPMENT VISION
Given the area's locatIOn at the urban fringe, away from 1-5 and
populatIOn centers m the regIOn, the Jasper-Natron area IS likely to be
primarily residential development, with small commercial centers primarily
servmg neighborhood residents Residential development m Jasper-Natron IS
unlikely to support much commercial use m the nodal centers Jasper-
Natron's settmg agamst hills to the east may help the area attract some
office or campus mdustrIal development that deSires a hlgh-amemty locatIOn
These uses tYPically have low denSity and may not be compatible with nodal
development goals
Traffic passmg through the area might support some additional retail
development m the area, but retail centers With a regIOnal market area are
more likely to look for more central locations
The future of Jasper-Natron should be considered m a long-run regIOnal
context Jasper Road hnks east Sprmgfield to the rural residential areas of
Jasper, Pleasant Hill, and Lowell Once roadways are Improved thiS traffic
will flow through the middle of Jasper-Natron, and thiS traffic will mcrease
With growth The RegIOn 2050 proJect has Identified the Jasper and Pleasant
Hill areas Immediately south of Jasper-Natron as potentIal UGB expansIOn
areas by 2050 'If urban development extends to thiS area, Jasper-Natron
would be part of an urban corridor hnkmg Sprmgfield and Pleasant Hill,
mcreasmg traffic through Jasper-Natron and makmg It less on the urban
frmge
IMPLEMENTATION ISSUES
Infrastructure and utility services are needed to allow development m the
Jasper-Natron area, mcludmg both the North and South nodal development
areas Key facilities mclude
. The Jasper Road ExtenSIOn will pass through both Jasper-Natron
nodal development areas, connectmg the Eugerie-Sprmgfield
Hlghway/Mam Street mtersectlOn With Jasper Road The Jasper Road
ExtenSIOn IS necessary to support development m the Jasper-Natron
area ConstructIOn ofthe JRE through Jasper-Natron may reqUire
expensive Improvements to the Eugene-Sprmgfield Hlghway/Mam
Street mtersectlOn The locatIOn ofthe Parkway ExtenSIOn, locatIOn
and number of mtersectlOns, traffic speed, and other characteristics of
the ExtenSIOn may have ImplicatIOns for the locatIOn and orientatIOn
of the nodal development areas
I
I
i RegIOn 2050 IS planmng prOject for the future of the southern W1l1amette Valley, bemg currently conducted by the Lane
Council of Governments
Page 4-26
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
. Local streets must also be constructed for mternal cIrculatIOn m the
Jasper-Natron area These streets will be funded primarily by private
developers
. Sewer Improvements needed m the area mclude a 3-mlle sewer trunk
lme extensIOn, a hft statIOn upgrade, and several collector sewer hnes
wlthm the site Total cost ofthe samtary service m 1998 was
estimated to be $4 5 millIOn City staff report' that matchmg funds by
developers and residents Will likely come only after the completIOn of
the Jasper Road ExtensIOn, which Will spur development m the area
. ExtensIOn of City water service IS expected to cost $500,000 to $1
mllhon for the transmiSSIOn lme extensIOn, $40 to $45 per linear foot
for distributIOn lines, and $813 per hookup for mdlvldual water
supply
. An adequate storm water system IS estimated to cost a total of $2 6
millIOn
The Jasper-Natron South nodal development area contams a 33-acre mill
site zoned Special Heavy Industrial ThiS site contams a wood products mill
served by a rail spur, which IS currently used to kiln dry veneer ThiS heavy
mdustnal use may not be compatIble with the higher-density and mixed-use
development envIsIOned for nodes
, CIty of Spnngfield, Prehmmary Staff AnalYSIS of PotentIal Node SIteS, 2002
Springfield Nodes Market AnalysIs
and Development Strategy
ECONorthwest
February 2003
Page 4-27
r
Current land use
The proposed Mohawk nodal development area is dominated by Mohawk
Boulevard, which runs at an angle from northeast to southwest across the
neighborhood. Automobile dominated retail commercial uses predominate
along approximately two. thirds of the northern portion of Mohawk
Boulevard. In most cases, buildings are set back from the street with parking
lots located in front of the buildings. Traveling south to the I Street
intersection, land uses transition from commercial to institutional uses,
including a church on the northeast corner ofthe intersection, McKenzie-
Willamette Hospital on the southeast corner, and Willamalane Park to the
southwest. There is limited office and multi-story residential development in
the Mohawk area. Mohawk is bordered on the east, south, and west by
established single-family residential neighborhoods. Many of the commercial
and residential buildings in the area are dated and in need of repair.
The Mohawk Node area is dominated by two zones: major retail (45%)
and low density residential (37%), as shown in Table 4-7. All other uses
account for about 18% of zoned land. There is no land zoned for public use,
open space, or industrial. Table 4.7 also shows that over 90% ofthe Mohawk
nodal development area is improved, with only 10.5 acres vacant or
potentially redevelopable. Given the condition of existing buildings in the
node, the redevelopable acres shown in Table 4-7 may understate the actual
redevelopment potential in the node.
Table 4-7. Acres of land by zone and development status,
Mohawk
ZoninQ
Low-Density Residential
Medium-Density Residential
High-Density Residential
Major Retail
Community Commercial
General Office
Total
Source: City of Springfield. 2002.
ImDroln
1.6
10.2
52.7
5.0
0.8
112.2
vac~n: Redeve~~
1.0
1.1 1.6
0.9 0.8
0.2 1.2
4.7 5.8
Total
45.6
1.6
11.2
55.4
6.7
2.2
122.7
Infrastructure and services
Water, sewer, and storm drain facilities are provided throughout the
Mohawk neighborhood. The area is serviced by 15- to 8-inch sewers and
likely runs full during major rainstorm events. Water distribution pipes are
12-inch and lO-inch loops and currently have sufficient capacity to meet
fireflow demands. Some of the minor loop connections may need to be
upgraded during the redevelopment process. Overall, infrastructure services
are adequate for current demands with enough additional capacity available
to service nodal development densities.
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-29
MOHAWK
The location of the Mohawk node is shown in Figure 4-6.
Figure 4-6. Mohawk nodal development area
Mohawk Nodo
Zoning Mop
" rf
I tIt 1111111111111 r II ~~~ III" 111/7LII7:
I~-=II. ..r
EmiffiHIfHl~
ffiiffifiiirnJ_
MEa . '
iffilOfffiHB-.rE'E
1:1--" =
.,... r... At-. l.llIII]
ilia......,.....""
co__
~ UM:C ....UN...... cc
a....."-IIIe-...
ra.,---.
_ ..... o...IIr-""'"
- ......~..........
...--
-_-.0
_ ...."-UI c-...
.... ..........c--..
_ UMX........
_ 14N..............
..c.......,.......
_.....,.......~
......-
~LINI&O"'.....
...... .... tWy..... u.
- .........
_a.-ya_o.......,.
.. . ,. ..,-
s_ .,-
Source: City of Springfield.
CURRENT ACTIVITY AND DEVELOPMENT
Role of the Mohawk area in the regional economy
Existing development in the Mohawk area primarily occurred in the 1950,
when the area was at the eastern fringe of most residential development in
Springfield. At the time Mohawk was a suburban strip development that
included an early version of the modern indoor mall.
The Mohawk area is now centrally located in Springfield, and is
immediately south of an 1-105 interchange. The northern portion of the area
has redeveloped with big-box retail stores that have a regional market area.
The remainder of the Mohawk area consists of older strip development with
local businesses that primarily serve local residents. Buildings in the central
Mohawk area are not the type and quality desired by chain stores and other
typical tenants of new strip development. The former Waremart store and
surrounding buildings are low-quality and are primarily vacant. The
southern portion of Mohawk is dominated by the McKenzie-Willamette
Hospital campus.
Page 4-28
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
residential to medical, and positIOn busmesses m the commercial center to
serve a regIOnal market by movmg the commercial core closer to maJor
arterial roadways
Current land use
The Rlverbend nodal area IS dommated by agricultural uses with a few
pockets of rural residentIal uses It IS bordered on the east and southeast by
the McKenZie River, to the west and southwest by residential uses, and to the
north by agricultural uses Although It IS m agricultural use and at the edge
of the UGB, the Rlverbend nodal development area IS primarily zoned for
medIUm-density residentIal
Table 4-8 Acres of land by zone and development status,
Rlverbend
ZOnlnq Improved Vacant Redeveloe Total
Low-Density Residential 56 03 23 82
Medium-DenSity Residential 31 0 117 4 294 177 8
Campus Industrial 03 17 20
Total 369 117 7 334 1880
Source CIty of Springfield 2002
Table 4-8 shows the current land use by zone, whICh does not reflect
proposed amendments to allow the proposed hospital development Current
zomng IS almost entirely for medIUm density residential No land IS zoned for
commumty commercial or for pubhc land open space
Infrastructure and services
Development m Rlverbend Will reqUIre extensIOn of PIOneer Parkway to
connect With Beltline Road, sewer, stormwater, and utilities to the area The
cost ofthese Improvements Will be primarily paid by PeaceHealth as part of
their proposed hospital development Without the hospital development, the
cost of arterial roads and sewer trunk hnes would fall to the City, With some
reimbursement from private developers m the area Internal streets, sewer
connectIOns, and stormwater management would need to be provided
primarily by private developers
ExtensIOn of PIOneer Parkway and development m the Rlverbend area
also reqUIre Improvement ofthe I-5/Beltline mterchange and
Beltline/Gateway mtersectlOn These Improvements are mcluded m
TransPlan's financially constramed roadway proJect hst, and planmng for
these Improvements IS underway Traffic generated by the PIOneer Parkway
extensIOn or by Rlverbend development cannot be accommodated Without
these Improvements :
I
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 4-35
RIVERBEND
Figure 4-7. Riverbend nodal development area
I JI , Node
Zoning Mop
~_.._P\M
__0.__,
_t.._
-liif€Yz.:,<c
---
---
....
."",,0-..,"-'
__0....,___
U-O-,l_
===-~
.. .......- c_
_LMIItt......u.
_l.>f'It__
_t_...........
.....-,_......
_tIe<oo,........
. "'*1.-'..0"'s,..
........Kooar__
_~"Cllk.
_0.-,"_0.._1
JOD 0 JllO flOO
Source: City of Springfield.
The Riverbend nodal development area is located along the McKenzie
River in north Springfield, immediately east of the Gateway commercial
district. The location of the Riverbend node is shown in Figure 4- 7.
CURRENT ACTIVITY AND DEVELOPMENT
Role of the Riverbend area in the regional economy
The Riverbend area is primarily vacant, and improved parcels are mostly
rural residential uses on large lots. The area is currently outside of the city
limits but inside of the Urban Growth Boundary, and is not served by
transportation or utility services needed to support urban development.
The Riverbend area was recently selected as the site of a new hospital
campus by PeaceHeaith, the major regional hospital in Eugene-Springfield.
Before PeaceHealth's interest in Riverbend, the site has been planned for
medium-density residential development with a neighborhood commercial
center to serve area residents." The PeaceHealth proposal would change
planned use in a portion ofthe Riverbend site from medium-density
"City of Springfield, McKenzie-Gateway Medium Density Residential Site Conceptual Development Plan, July 1994.
Page 4-34
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
. IntersectIOn Improvements
In additIOn to pedestrian and aesthetic Improvements, the Plan also
Identifies the need for an additIOnal northbound through lane on Mohawk
Boulevard at the eastbound mterchange with Eugene-Sprmgfield Highway to
mitigate expected future congestIOn levels resultmg from traffic growth and
zomng changes Improvements to this lllterchange are mcluded m
TransPlan's financmlly-constramed proJect hst
The Plan also calls for a number of Development Code amendments Most
of these recommendatIOns are amendments to Article 28 (Hospital Support
Overlay District) that would allow additIOnal uses, lllcludlllg day care
centers, dehs, convemence stores, and other small- to medIUm-sized
commercial and retail stores that would service employees, patients, and
vIsitors ofthe medICal services
Numerous deSign gUldehnes were also recommended to encourage
pedestrian-friendly deSign These recommendatIOns lllclude usmg materials
that delllleate the pedestrian routes, such as usmg alternate pavmg
materials and textures, signs, pedestrian-scale hghtmg, landscaplllg, and
marklllgs that are consistent throughout the neighborhood The development
of pedestrian plazas, as well as bUlldmg standards that are oriented towards
pedestrians are recommended AdditIOnal changes recommended mclude
maklllg alternative modes of travel more attractive For example, lllstallatlOn
of bus shelters and better coordmatlOn between signal tlmmg, and phasmg of
bus service may encourage more travelers to take pubhc transit
Fmally, the plan recommends takmg advantage of opportumties to
decreaslllg the number of parklllg spaces This could be accomphshed by
ImplementatIOn of mixed use development (parkmg spaces can be reduced by
takmg advantage of different peak parkmg demands for different uses),
Implementation oftransportatlOn demand management strategies, and
ImplementatIOn of a LTD bus pass program
Large-scale redevelopment Will reqUire demolitIOn and reconstructIOn
Site plan economic analYSIS determmed the most reahstIc area for
redevelopment IS the Central Mohawk Boulevard area An aSSisted hVlllg or
retIrement home IS envIsIOned near McKenzle- Wlllamette Hospital, though
that would reqUire an upgrade m water and sewer facilities Urban water,
sewer, and storm dram faclhtIes are located throughout the area and can
accommodate limited additIOnal development
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 4-33
Page 4-32
Market issues
Accordmg to the MBSP, the potential for substantial redevelopment m
the Mohawk area IS hmlted by the eXlstmg economiC profile Income levels m
the Mohawk area are slgmficantly lower than m Eugene or Sprmgfield (35%'
and 26% lower, respectively) Most ofthe eXlstmg busmesses primarily serve
Springfield residents While retail stores with a regIOnal market area could
locate m Mohawk, most ofthese types of stores that rent space are lookmg for
hlgher-quahty bUlldmgs m newer developments Large retailers tYPically
build theIr own stores rather than rent, and some ofthese retailers have
redeveloped sites m the northern portIOn ofthe Mohawk node While there
may be potential for further redevelopment by big-box retail stores, thiS type
of development IS not compatible With nodal development goals for hlgher-
density mixed-use development
ASSESSMENT OF THE DEVELOPMENT VISION
The central Mohawk area does have potential to redevelop mto a hlgher-
density mIXed-use node EXlstmg commercial development and the
surroundmg residential neighborhoods provide a framework for nodal
development DensIties can be mcreased and uses mixed by a few mfill and
redevelopment proJects Nodal development m the area Will depend on
Improvements to Mohawk Boulevard, prOVISIOn of mternal cIrculatIOn m the
central Mohawk area, and higher-density residential development near
central Mohawk to mcrease demand for retail uses
IMPLEMENTATION ISSUES
While the MBSP calls for mIXed-use, no mechamsms, other than applymg
a mIXed-use zone to the area, are suggested to achieve a mIX of uses
Consldermg that the area IS bUilt out, thiS may be difficult to achieve Without
mcentlVes that encourage land owners to change uses from a smgle use to
mIXed-use
The Plan calls prImarily for Improvmg the pedestrian environment and
Improvmg aesthetics Recommended pubhc Improvement proJects mclude
. Boulevard treatment of Mohawk Boulevard, OlympiC Street, and
Centenmal Boulevard,
. Entrance/focal pomt treatment at key locatIOns,
. Improve the pedestrian cIrculatIOn route, mcludmg constructmg of
pedestrIan routes to shoppmg centers, hospltalfhealth facilities, and to
Willamalane Park,
. Improve transit circulatIOn and faclhtles mcludmg Improvements to
difficult to negotiate mtersectlOns, Implement transportatIon
strategies that give priority to tranSit, Improve overall service, and
build a transit statIOn m the Mohawk area, and
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
. South Mohawk Integrated health care and asslsted-livmg
opportumty area
Physical constraints
Approximately 1 88 acres of wetlands are located wlthm the proposed
node along the Q Street Channel (Wetland M-27) These wetlands are not
expected to be a barrier to nodal development m the Mohawk area, given
their small size and locatIOn along the northern edge of the nodal
development area
Infrastructure capacity
The MBSP calls for few changes to mcrease capacity to mfrastructure
Many ofthe transportatIOn Issues are aesthetic, or address Improvmg the
pedestrian and transit environment The MBSP mcluded an analysIs of 2015
level of service (LOS)' at mtersechons on Mohawk Boulevard given current
lane configuratIOns, expected growth m traffic volumes, and additIOnal traffic
generated by changes m zomng Imphed by the concept plan This analYSIS
found that all ofthe mtersectlOns along Mohawk Boulevard are expected to
operate at an adequate level of service (above LOS "D") except the eastbound
mterchange With Eugene-Springfield Highway This portIon of the
mterchange IS expected to operate at LOS F With the current lane
configuratIOn or at LOS D With an additIOnal northbound through lane
Improvements to this mterchange are mcluded m TlansPlan's financlally-
constramed proJect hst UtlhtIes mcludmg water and sewer were determmed
to be adequate for current uses With hmited room for growth
BUildable and redevelopable lands
The Mohawk node area IS characterized as bemg almost entirely bUilt out
Table 4-5 shows Improved, vacant, and redevelopable land m the Mohawk
node node Ofthe almost 123 acres m the prehmmary node boundary,
approximately 112 acres (91 %) are considered Improved A httle less than 4%
IS vacant, and less than 5% IS considered redevelop able
Over 55 acres (45% ofthe node) IS zoned MaJor Retail, this land IS located
m the Central Mohawk area and IS the most common zomng m the node
Low-density residential IS the next most common zone With over 37% of the
node acreage McKenZie WIllamette Hospital IS located m the Mohawk node
and occupies land zoned low-density residentIal
fI Level of servIce (LOS) uses the letters A, B, C, D, and F to descnbe a range of operatlOll conmtlOlls on a roadway,
mcludmg speed, travel trme, freedom to maneuver, traffic mterruptIons, comfort, convemence, and safety LOS A
represents the best level of servIce, while LOS F represents the worst operatmg COmu.tlOTIS
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 4-31
Page 4-30
DEVELOPMENT POTENTIAL
Development vision
The Mohawk Boulevard Specmc Plan (MBSP) enVISIOns a "vibrant mIXed-
use area" along Mohawk Boulevard The MBSP outhnes strategies that focus
on mcreasmg pedestrian utlhty and amellltles to transform the environment
from an auto-dommated, pedestrian unfriendly neighborhood to a node that
mtegrates the residential areas mto the commercial core by Improvmg the
pedestrian enVIronment and Improvmg transit access
The MBSP primarily relies on Improved pedestrian facilitIes and
landscapmg, and secondarily on actual changes m land use, to achieve the
"Vibrant" mixed-use VISIOn Density and mtenslty changes that move the area
towards mixed-use are hkely to occur mcrementally m the Mohawk
neighborhood The neighborhood IS currently bUilt out and property owners
may need mcentlves to mcrease the density or mtenslty of land use on theIr
property
North Mohawk Boulevard IS dommated by auto-oriented development
mcludmg fast-food restaurants, a small cmema, and miscellaneous retail
stores There IS limited potentIal for redevelopment on the west side of
Mohawk Boulevard Older shoppmg centers that exhibit signs of deferred
mamtenance are the primary use m the Central Mohawk area Offices and
multi-family dwelling umts mark the edge of the commercial corridor The
shoppmg centers could provide redevelopment Sites, but they may be very
difficult to change, as there IS a concentratIOn of successful, older busmesses
m these areas South Mohawk features the McKenzle-Willamette Hospital
complex Smgle-famlly residences dommated by 1950s stock surrounds the
commerclalJ mstItutlOnal corridor
The Plan outlmes preferred roles for the Mohawk District subareas that
mclude
. North Mohawk Predommately auto-oriented commercial use
. Central Mohawk MIXed-use commercial core at the heart ofthe
Mohawk Boulevard DiStriCt, MIXed-use scenarIOs m thiS district could
mclude a combmatlOn of
. Office uses corporate, general busmess, medical
. Residential redevelopment owner-occupied, renter-occupied,
commerclallodgmg, selllor housmg
. CommercIal convenience, comparison, services
. InstltutIonalJgovernmental Lane Commulllty College, other
educatIOnal mstltutlOns
. Employment centers
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
-
DEVELOPMENT POTENTIAL
Development vision
The vision for nodal development in Riverbend is based on Peace Health's
proposal to build a major medical campus in the nodal development area. The
PeaceHealth proposal includes a 54-acre medical campus, mixed-use
development, structured parking, and open space on 165 acres. This site is
owned by Peace Health and composes most of the 188-acre nodal development
area.
Peace Health wants to create a "healing environment" with aCCeSS to
natural amenities on site. Their proposal includes preserving viewsheds
along the river by a 30-foot public easement and open space throughout the
site. A mixed-use retail and commercial center would serve the hospital and
surrounding neighborhoods, and this center would be located near the
extended Pioneer Parkway to provide visibility and regional access. The
proposed land use framework for the Riverbend nodal development area is
shown in Figure 4-8.
Figure 4-8. Proposed land use framework for the Riverbend nodal development area
".
......
li tANP VS4'
t I f'M/lf6-!V,,-I'-
0: ""!!it> i"SIJ f'Ym/"'-
1/. -'Ie,. "r",,;
rr,rl-r. r, ,,-
. (7 'f.,,-_ . _~;
NlrliC ~ NH. ...~
"",PlJtllrlAl- t'1f A&- ,"'''<7
~ ~1'6N ~/'A<6 (12- Tff>U,)
o ttet>/v,lf _/T'Y I'/JVDl!WfTA<-
flU If&- T1rA~)
. ?VN-tv "1l"Y '~(1N:-1lJrIll-)
. _ &/IKI'vS (Sf,ft>---_J
.~. fV#<Ie-- Etf$ttllHr
NPTlir'. ," ,'P!!tWfTY ~v~1'
~7>l<. ~ ''''~ fAl'U'<S
tfUJ/f'" ~ V1~"" WINtJ.
Source: Crandall Aramubla.
The proposed mix ofland useS are quantified in Table 4-9, which shows
acreS and amount of development by land use. The proposal envisions 882
medium-density residential units on 45 acres, yielding a net density of about
20 units per acre. 12 acres designated for mixed-use retail uses are expected
Page 4-36
February 2003
ECONorthwest
Springfield Nodes Market Analysis
and Development Strategy
;'
to support 105,000 sq, ft. of development, which is a FAR of 0.2. Public parks
and open space are expected to compose 19 acres or 10% of the nodal
development area. Streets and transit facilities will take 55 acres or 30% of
the nodal development area.
Table 4-9. Proposed land use mix by type of development, Riverbend
Use Net Area Max. Bldg. Max. Bldg. Residential Residential
Ara3 COVAr30A DAn~ifv llnit!=;
acres square feet % coverage net unils/acre #
~ W ~
54
12
7
12
130
55
185
Residential
Medical Campus
Mixed Use Retail'
Public Parks
Private Open Space
Net Total
RoadslTransit
Gross Total Area
105,000
20
882
. In addition to max. retail building area of 105,000 sf, development may also indude residential and office uses.
Source: City of Springfield Planning Department, 2002.
If the Peace Health medical campus is not approved, the 54-acre hospital
site would still be zoned for medium-density residential use. This site could
accommodate an additional 450 dwelling units at a net density of 12
units/acre, or an additional 750 units at a net density of20 units/acre
(assuming 30% of site is used for roads).
Physical constraints
The Riverbend nodal development area is situated along the McKenzie
River. Of the 188 acreS in the nodal development area, about 5 acres are in
the flood way and 86 acres are in the 100-year flood zone ofthe McKenzie
River. The development vision for Riverbend has taken these areas into
account, using flood zone areas as public and private open space.
The Riverbend node also includes about .6 acres of wetlands. These
wetlands have also been considered in the development proposal, and they
should not be a barrier to nodal development in the area.
Infrastructure capacity
Significant public improvements are necessary for this vision to become a
reality. Development in Riverbend will require an extension of Pioneer
Parkway north to connect with Beltline Road. Improvements at the 1-
5/Beltline interchange and Beltline/Gateway intersection will also be
necessary to facilitate increased traffic loads. All roads for internal traffic in
the site must be built. Peace Health has offered to pay for the extension of
Pioneer Parkway and internal streets needed for the Riverbend development.
Springfield Nodes Market Analysis
and Development Strategy
ECONorthwest
February 2003
Page 4-37
Page 4-38
Improvements III transit are enVisIOned, with LTD and Bus Rapid TranSit
(ERT) service extensIOns after development BRT IS expected to have 1-2
stops m the Rlverbend node as part of a north-south loop from the Downtown
Sprlllgfield StatIOn At this time It IS not certam whether this loop will stay
east of 1-5 and loop through Gateway and back to downtown Sprmgfield, or
cross 1-5 to connect to the Chad Dr area, Coburg Road, and Downtown
Eugene
Development m Rlverbend Will also reqUire storm water management and
extensIOn of sewer hnes and utility servICes The costs for these
Improvements will be paid primarily by PeaceHealth
BUildable and redevelopable lands
Table 4-9 shows that current zonmg m the Rlverbend node deSignates
almost 95% of the site (178 acres) for medIUm denSity residentIal There IS no
land zoned either commumty commercial or high-density residentIal A mere
1 % (2 acres) of the node IS zoned for employment (campus mdustrlal) Like
the Jasper-Natron nodes, RlVerbend IS primarily a greenfield site, over 62% IS
vacant and another 18% IS redevelopable
Market issues
The Rlverbend development proposal did not Illclude an analYSIS of
market conditIOns
The future pattern of development III the Rlverbend area IS closely tIed to
the PeaceHealth proposal If the proposal IS ultimately approved, Rlverbend
Will serve as a maJor regIOnal sub center for employment and medical
services Employment at PeaceHealth and related medical faclhtles would
generate demand for residentIal development m the area Employees and
VISitors to PeaceHealth would also generate demand for retail and
commercial development m the area
The development proposal mcludes substantIal amounts of medlUm- and
high-density residential development m the area Proximity to the hospital,
hlgh-quahty natural amemtles, and the nodal characterIstIcs ofthe area Will
help mcrease rents and sales prIces, whICh Will support higher denSities III
the area The hospital development may also create mche markets for
I
residential development m Rlverbend, mcludmg high-end high-density
condomllllUm umts and live/work umts
ASSESSMENT OF THE DEVELOPMENT VISION
The proposal mcludes a substantial amount of medIUm-density
residential development, about 900 umts at a net denSity of 20 umts per acre
ThiS amount of development IS roughly 2/3 of the total 'residential
development III Sprmgfield nodes through 2015, as mdICated by the high end
ofthe forecast m Chapter 3 Given the potential attractIveness of the site and
,
demand generated by the hospital, thiS level of reSidential development can
February 2003
ECONorthwest
Sprrngfield Nodes Market AnalYSIS
and Development Strategy
probably be absorbed over an 8-10 year perIOd This Implies, however, that
Rlverbend will capture most ofthe forecast demand for residential umts m
Sprmgfield nodal development sites
However, the forecast demand for residentIal umts III Sprmgfield nodal
sites IS based on Sprlllgfield gettmg a share of nodal development that
corresponds to ItS share of populatIOn, histOriC populatIOn growth, and
bUildable residential land III Eugene-Sprmgfield The PeaceHealth proposal
will generate development and employment growth m Sprmgfield beyond ItS
histOrIC share m the regIOn, which may cause Sprmgfield to attract a larger
share of regIOnal residentIal development
Without the PeaceHealth development, the 54-acre medical campus site
would still be zoned for medIUm-density residential use ThiS area could
support another 450-750 residentIal umts at a net denSity of 12-20
umts/acre, assummg 30% ofthe site would be used for streets and open
space The absence ofthe hospital would reduce demand for residentIal
development, slowlllg absorptIOn and reduclllg the overall denSity of
development m the area
The 105,000 sq ft of mIXed-use retail space envIsIOned m the
development proposal should be easily supported by market conditIOns III
Rlverbend ThiS amount of development IS small compared to the regIOnal
demand for commercial development estimated m Chapter 3 Property
frontlllg the PIOneer Parkway extensIOn will be attractive for retail and office
development because ofthe level oftraffic and vlslblhty, even Without the
hospital development Of course, the hospital and surroundmg residential
development will add to demand for retail and office uses m the area
Retail development tYPically follows residentIal development m an area,
poslllg a problem for creatlllg retail centers m nodes With the hospital thiS
will not be much of a problem m RIVerbend The area Will still be attractive
for retail and commercial development Without the hospital, but development
would happen more slowly and probably lag residentIal development III the
area
With 1-5 access, locatIOn near the Gateway commercial distriCt, and the
high amemty of a riverfront locatIOn gIVe the Rlverbend site potential to
serve as a maJor regIOnal subcenter With or Without development ofthe
PeaceHealth proposal In short, Rlverbend IS currently the premier
development site available m the Eugene-Sprmgfield market
IMPLEMENTATION ISSUES
Approval of the PeaceHealth proposal reqUires amendments to the
Gateway Refinement Plan and Metro Plan Diagram The process to make the
necessary reVISIOns IS currently underway The proposed amendments will
preserve the City's ability to Implement nodal development III Rlverbend
while concurrently processmg PeaceHealth's Master Plan applicatIon Once
amendments to the Gateway Refinement Plan and Metro Plan Diagram are
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 4-39
adopted, the City can mfluence the characteristIcs and locatIOn of
development m RlVerbend through the master plan apphcatIon process The
City will address outstandmg Issues relatmg to development m Rlverbend,
mcludmg transportatIOn and floodmg, m the plan amendment and master
plan applicatIOn processes
SUMMARY
Table 4-10 shows acres ofland m all ofthe SIX selected nodal development
areas m Sprmgfield by zonmg and development status Table 4-5 shows that
the SIX nodal development areas m Sprmgfield have a total of 682 7 acres
Table 4-10 Acres of land by zone and development status In
Springfield nodal development areas
Zonmq Improved Vacant
Low-Density Residential 122 7 99 9
Medium-Density Residential 37 0 119 1
High-Density Residential 121 29
Community Commercial 85 5 306
General Office 0 8 0 2
Medical 52 7 1 1
Campus Industrial 03 00
Light-Medium Industrial 133 15
Special Heavy Indusrlal 32 9 0 0
Public 3 9 83
Total 361 2 2635
Redeveloe
45
294
67
83
12
16
1 7
46
00
00
580
Source City of Springfield
Total
2271
1855
21 7
1243
22
554
20
193
329
122
6827
About 40% of plOperty (263 5) m the nodal development areas IS not
Improved, and another 8% has potential for redevelopment, 33% of land m
nodal development sites IS zoned for low-density residential development,
and another 27% IS zoned for medIUm-density residentIal development Only
3% ofland m nodal development areas IS currently zoned for high density
residential About 18% ofland m nodal development areas IS currently zoned
for commumty commercial development Designated nodal development sites
also contam 54 2 acres zoned for mdustrlal development
The descnptlOn of planned development m the nodal development areas
m this chapter IS drawn entirely from prevIOus concept plans developed for
these sites In general, all ofthe concept plans call for creatmg higher-density
mIXed-use centers m each of the nodal plannmg areas t
I
. Downtown Springfield remvlgoratlOn of downtown Sprmgfield as
I
the heart ofthe City, With streetscape Improvements, better pedestnan
connectIOns, and public spaces Establishment of an arts and cultural
I
district Infill develop ment and redevelopment to remforce eXlstmg
retail and add residential uses Downtown
. Glenwood redevelopment ofthe nodal development area mto a
mIXed-use center that IS primarily residential w;th some office and
Page 4-40
February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
retail uses Redevelopment ofthe entire area could add 850 residential
umts and 135,000 sq ft of commercial office and retail space (see
Table 4-3)
. Jasper-Natron this mostly greenfield site would have a commercial
and high-density residential core centered at an mtersectlOn ofthe
Jasper Road ExtensIOn In additIOn, commercial and high-density
residentIal centers would be located at the northwest corner ofthe
study area and a "floatmg node" would provlde up to 18 9 acres of
mIXed-use commercial m the southern portIOn ofthe study area At
build-out, the entire Jasper Natron study area would have up to 3,700
residentIal umts, 160,000 sq ft of commercial (primarily retail) use,
and 1 2 milhon sq ft of campus mdustrlal development (see Table 4-
6)
. Mohawk mfill and redevelopment of the eXlstmg commercial district
to mcrease a higher-density mIXed-use core, mcludmg residential
uses, m the nodal development area
. Rlverbend development of this mostly greenfield site as a regIOnal
medical campus surrounded by 882 umts of medIUm-density
residential and a mIXed-use center With 105,000 sq ft of retail and
commercial busmesses that serve both the node and regIOnal markets
(see Table 4-9)
Springfield Nodes Market AnalYSIS
and Development Strategy
ECONorthwest
February 2003
Page 4-41
,
Chapter 5
Nodal Development Potential
.~ ~ S~ringfield
-- .
PrevIOus chapters have described natIOnal trends m nodal development,
expected regIOnal market conditions Over the next 15-20 years, and eXlstmg
conditIOns and concept plans for development m the selected nodal areas
This chapter draws on this material to asses the amount of nodal
development that could occur m Sprmgfield
This chapter begms with an exammatlOn of the financial feasibility of
nodal development products This analysIs describes the extent to which the
private market may be wlllmg to construct nodal development products,
gIVen market conditIOns and the absence of public assistance or mcentlves
ThiS mformatlOn and the analyses m the preVIous chapters IS then used to
come to conclUSIOns about the amount of nodal development likely m
Sprmgfield sites over the next five years and long-run plannmg perIOd
FEASIBILITY OF NODAL DEVELOPMENT PRODUCTS
ECONorthwest, by Itself and m conJunctIOn With other consultants, has
recently conducted feasibility studies of potential nodal development products
m urban Northwest markets In thiS sectIOn summarizes conclUSIOns from
these studies regardmg the rents, sale prices, or land prices needed to make
these products economically Viable We compare the results of these studies
to market conditions m Sprmgfield to Identify the ImphcatIons for nodal
development m Sprmgfield nodal sites
ThiS sectIOn IS orgamzed by development type Data from varIOus
feaslblhty studies are brought together for each development type to
corroborate results and draw conclUSIOns about the market for nodal
development products m Sprmgfield
MULTI-FAMILY RESIDENTIAL
I
A recent study of the feaSibility of multi-family development m the Salem
market found that :
i
. Rowhouse and Garden Apartment developments usmg wood-frame
constructIOn With surface parkmg are feaSible With rental rates of
between $0 85 and $0 87 per sq ft
. Mid-Rise Apartment developments usmg a concrete podIUm to prOVide
,
parkmg under the umts and elevators are feaSible at rental rates of
$1 11 per sq ft
I
I
Rents m Eugene-Sprmgfield for new traditIOnal apartment developments
average $0 70 to $0 85 per sq ft per month, mdlCatmg1that Rowhouse and
Springfield Nodes Market AnalYSIS
and Development Strategy
ECO Northwest
February 2003
Page 5-1
Page 5-2
OFFICE
Garden Apartment style developments are currently feasible m the regIOnal
market This IS supported by the fact that the regIOn has seen many such
developments m recent years III response to demand from populatIon growth
The rents needed to JUStify Mid-Rise Apartment developments occur
primarily m the UO campus area, and thiS IS where one sees most ofthls
style of multi-family development m the Eugene-Sprmgfield regIOn
Rents for neW apartments m downtown Eugene average $090 to $1 30
per sq ft per month These higher downtown rents, however, are not
sufficient to support high-rise reSidential development Recent reSidentIal
development m downtown Eugene has occurred with financial assistance
from the City of Eugene m the form oftax abatements, low-mterest finance,
and bUlldmg and leasmg-back parkmg at or below cost
A feasibility study conducted for the Sprmgfield StatIOn Area Plannmg
proJect mdlcates that rents III Sprmgfield must reach about $1 30 per sq ft
per month, or $780 per month for a 600 sq ft apartment, to Justify
development of a 36-umt low-nse apartment complex A larger apartment
complex might be feasible at lower rent levels because of economies of scale m
constructIOn costs
For Urban Centers m metropohtan Portland, ECONorthwest and
Johnson Gardner conducted a feaslblhty study of three types of office
developments low-nse, mid-rise and hlgh-nse ThiS analysIs IdentIfied the
level of rent needed to make proJects feasible given a range ofland values
Only the high-rise format Illcluded structured parkmg The results ofthls
analysIs correspond with observed behavIOr m the market
. LOW-rise office space, tYPically smgle-story flex space, IS the
predommant development type when land values are below $6 00 per
square foot LOW-rise office space IS typically bUilt on relatively low-
cost mdustrlalland m flex bUlldmgs LOW-rise office developments on
mexpensIVe land are feasible at rents of $0 50 per sq ft per month
. Mid-rise development with surface parkmg IS economically viable at
land values above $6 per sq ft and up to about $90 per sq ft ThiS IS
why mid-rise office development generally the predommant style
outside of high-value downtown areas Mid-rise developments are
feasible at rents of $0 63 per sq ft per month Sprmgfield has seen
some recent development of mid-rise commercial offices for banks on
Harlow Road near Gateway Mall
. High-rise office developments are feasible only at land values of $90
per sq ft, or $3 9 milhon per acre, and above ThiS IS why high-rise
office developments are found primarily m a regIOnal central busmess
dlstnct High-rise office developments reqUire rents of $1 33 per sq ft
February 2003
ECO Northwest
Springfield Nodes Market AnalysIs
and Development Strategy
per month In Eugene, high-rise office developments reqUire some
form of subsidy to be feasible
RENOVATION OF DOWNTOWN RETAIL WITH APARTMENTS OR OFFICE
SPACE
For the Sprmgfield StatIOn Area Plannmg proJect In Downtown
Sprmgfield, ECONorthwest conducted a feaslblhty analysIs for two
prototypical renovatIon proJects renovatmg a buildmg to create apartments
over retail, and renovatmg a bUlldmg to create office over retail
ThiS analysIs found that renovatIOn proJects m Downtown Sprmgfield are
not feasible given the eXlstmg low rent levels The feaslblhty of renovatIOn
proJects m Downtown Sprmgfield will Improve as rent values mcrease Both
renovatIOn proJects become feasible with mcreases m rent
. For the apartments over retail proJect, apartments rents of $1 per sq
ft and retail rent of $1 50
. For the apartments over retaIl proJect, office and retail rents of $1 per
sq ft
Real estate specialists contacted for the Sprmgfield StatIOn proJect said
that renovatIOn costs for downtown bUlldmgs are close to, and m some cases
greater than, costs for new constructIOn To the extent that renovatIOn costs
equal costs of new constructIon, the results for prototypical renovatIOn
proJects apply to new constructIOn proJects with the same size and type of
sp ace
PARKING
Higher-density development desIred m nodes may reqUire parkmg
structures to provide suffiCient parkmg A feasibility study conducted for
Urban Centers m metropohtan Portland looked at the costs ofprovldmg
parkmg m surface lots, traditIOnal structured parkmg, and low-cost
structured parkmg ThiS analYSIS looked at costs per parkmg space wlthm a
range ofland values, from $0 to $100 per sq ft The results ofthls analYSIS
show that I
I
. The cost per space for surface parkmg IS less than for low-cost
t
structured parkmg at land values less than about $50 per sq ft or
$2 2 mllhon per acre :
~
. TraditIOnal structured parkmg does not cost less per space than
surface parkmg until land prices approach $65 per sq ft or $2 8
mllhon per acre '
I
. Between land values of $50 and $65 per sq ft, low-cost structured
I
parkmg has the lowest cost per space ThiS type of structured parkmg
Springfield Nodes Market AnalYSIS
and Development Strategy
ECO Northwest
February 2003
Page 5-3
uses constructIOn and design techmques, and hmlted structure height,
to lower costs
These results show that surface parkmg IS the lowest cost optIon m most
urban locatIOns Low-cost structured parkmg may be feasible at land prices
as low as $35 per sq ft or $1 5 mllhon per acre, but this value IS stIll higher
than most land values m Eugene-Sprmgfield
From a market perspective, structured parkmg IS unlikely to represent a
Viable development form m most locatIOns m Eugene-Sprmgfield Without
public participatIOn That conclUSIOn IS confirmed by recent work we have
done m Eugene, Salem, and Portland With a few exceptIOns, the private
sector does not provide structured parkmg m these markets Structured
parkmg m these cities IS primarily subsidIZed by the pubhc sector
MARKET SUPPORT FOR NODAL DEVELOPMENT IN SPRINGFIELD
The feaslblhty of nodal development products IS highly correlated to
constructIOn style and market rents Low-denSity development tYPically uses
low-cost wood-frame constructIOn, Yleldmg relatively low development costs
per sq ft of bUlldmg space Such developments are feasible With relatively
low rents Higher-density development reqUires higher-cost concrete and
steel-frame constructIOn and may reqUire elevators and structured parkmg,
mcreasmg the development costs per sq ft of developed space Higher rents
are needed to Justlly higher-density development
The results offeaslbllity analyses for nodal development products leads to
the followmg conclUSIOns for development m Sprmgfield nodal sites
. Multi-family Low-rise and mid-rise multi-family developments are
currently feasible m the Eugene-Sprmgfield market Current market
rents m Sprmgfield are suffiCient to JUStify low-rise developments m
some areas We beheve that higher rents observed elsewhere m the
regIOn are achievable m Sprmgfield, particularly m areas With high
amemtles These higher rents would Justify mid-rise multi-family
development m Sprmgfield
Large low-rise multi-famIly developments m Sprmgfield may be
feasible m part by takmg advantage of economies of scale m
constructIOn Smaller low-rise and mid-rise developments SUitable for
mfill sites m nodes may not be feasible due to higher development
costs per umt Pubhc assistance may be necessary for such
development to occur
High-rise multi-family development IS unhkely to be Justmed by rents
m Sprmgfield High-rise multi-family development m Eugene has
occurred With public subsidies that made the proJects feaSIble Pubhc
subsidies will be reqUired to get high-rise reSidentIal development m
Sprmgfield
Page 5-4
February 2003
ECO Northwest
Springfield Nodes Market AnalYSIS
and Development Strategy
. Office Low rise office developments are the most economically Viable,
but this development IS probably not compatible with the hlgher-
denSity goals of nodal development Mid-rIse development IS
achievable m Springfield, particularly m the Rlverbend node Mid-rise
office development mother Sprmgfield nodal development sites will
reqUIre Improvements to those nodes to mcrease relatIve rents and
land values, or pubhc assistance and mcentlves to make the proJects
feasible
. Renovation of bUIldIngs apartments or offIces over retail
Rents needed to make renovatIOns ofbuildmgs to provide apartments
or office space over retail are above current rents m most of
Sprmgfield but are wlthm the range ofrents observed m the Eugene-
Sprmgfield market This suggests that actIOns by the City of
Sprmgfield to enhance nodal development areas to Improve rents, and
pubhc assistance or mcentlves, may make these proJects feasible
Smce the costs of new constructIOn are close to the costs for
renovatIOn, tbls c?ncluslOn applies to new constructIOn as well
. ParkIng The private market IS very unhkely to provide parkmg
structures m Sprmgfield nodal development areas, With the exceptIOn
of the proposed hospital and related development m Rlverbend This
means that commercial development m nodes will rely prImarily, If
not exclusIVely on surface parkmg lots unless pubhc sector money
subsidizes parkmg structures
Rowhouses and Garden Apartments will also rely on surface parkmg
Some Mid-Rise Apartment developments may use a concrete podIUm
to provide parkmg underneath the umts, particularly on smaller mfill
lots where space for surface parkmg IS constramed, but current and
likely land values and rents will not support much ofthls development
soon
An Important ImphcatlOn of the rehance of development on surface
parkmg IS that It will limit the overall denSity of nodal development
areas and Will create a challenge for creatmg a pedestrIan
environment With the exceptIOn of the hospital development m
RlVerbend, public partIcipation will be needed to provide structured
parkmg m Sprmgfield's nodal development areas
,
[
I
That mformatlOn provides part of the context for an evaluatIOn of market
support for development m Sprmgfield nodes Another1part of the context IS
an estimate of the amount and type of development that IS tied to overall
regIOnal growth All of these factors are considered m the analYSIS and
,
conclUSIOns that follow The ImplementatIOn strategy m Chapter 6 ofthls
report Will mclude recommendatIOns for changes to pubhc policy to help
mcrease the amount and denSity of nodal developmentl
,
Springfield Nodes Market AnalYSIS
and Development Strategy
ECO Northwest
February 2003
Page 5-5
DEMAND OVER 2003-2007
Table 5-1 summarizes our estimate ofthe market support for
development m Sprlllgfield nodal areas over the five year 2003-2007 perIOd
The forecast IS for relatively little development m most nodes because
. ThiS IS short-run (3-4 years) analysIs Current market condltlOns can
be good predictors of future market conditIOns m the short run, and
current market condltlOns are not robust
. The analysIs looks at what the market IS hkely to do m the absence of
special public mcentIves More development will occur If the City uses
pubhc funds to underwrite It
Note also that Table 5-1 shows market support for any type of
development allowed by current zonmg, not only nodal development In areas
where there may be market support for development that IS not consistent
with nodal development goals for high-density and mIXed-use, such as big-box
retail development, the City of Sprmgfield may want to take measures to
prevent thiS development III nodal areas
Table 5-1 Market support for development In Spnngfleld nodal development
areas, 2003-2007
Node
Downtown
Spnngfield
Glenwood
Jasper-Natran
Mohawk
Rtverbend - With
hospItal
Rlverbend - Without
hospital
Source ECONorthwest
ReSidentIal
None
None under current zoning
85 Single-family attached
and multI-family umts on
riverfront sites If allowed
Continued low-denSIty
reSidential development In
North node
None
180 Single-family attached
and multi-family umts
90 Single-family attached
and multi-family umts
Retail Office
None None
Notes
Some bUilding renovation may occur
TYPical strip development
on Franklin riverfront
mIght attract restaurant or
low-nse office
None None
Development In Glenwood depends on
prOVIsion of sewer service and access
from Franklin Boulevard
Development depends on annexation
Into City and extension of servIces
Redevelopment None
for strip and blg-
box retail
105 000 sq It of office
and retail
Depends on provIsion of Internal streets
c.., J utIlities retail depends on
extension of Pioneer Parkway
50,000 sq It of
neighborhood
commerCial
Our conclUSIOns about market support for development m Springfield's
nodal areas are based on general market demand driven by forecast
populatIOn and employment growth AdditIOnal development m nodal areas
could occur from development proposals for unforeseen specmc proJects The
PeaceHealth proposal for the RlVerbend site Illustrates thiS pomt Another
example IS the recent purchase of a 3 7 -acre site near Downtown Springfield
by Chambers CommulllcatlOn Chambers IS currently holdmg the property
but has expressed a deSIre to redevelop the Site, they may find a large tenant
that would Justliy redevelopment, and they have the resources to bUild m
antIcipatIOn of Improved market conditIons
Page 5-6
February 2003
ECO Northwest
Springfield Nodes Market AnalYSIS
and Development Strategy
The conclusIOns m Table 5-1 are based on drawmg together mformatlOn
presented m Chapters 2-4 ofthls report, as well as assumptIOns about
tYPical and reasonable actIOns the City might take m response to
development proposals The followmg sectIOns discuss key factors mfluencmg
these conclusIOns by node
DOWNTOWN SPRINGFIELD
Current market rents will not support new residential, retail, or office
development m Downtown Sprmgfield, but some bUlldmg renovatIOn may
occur Without public assistance, we expect no more than a few Isolated new
developments m the node over the next 3-4 years
GLENWOOD
Current zomng does not allow residential development If zomng changed
to mixed-use as recommended by the concept plan, development would stIll
reqUire extensIOn of sewer service and access to Franklin Boulevard If all of
thiS occurs m the next three years (possible but unhkely), the vacant eastern
riverfront portIOn ofthe nodal area could accommodate two years of average
demand for smgle-famlly attached and apartment umts m Sprmgfield, or a
total of 85 umts To be feasible, these umts would probably be m row houses
or lOW-rise development that are compatible with nodal development but may
not make best use of the riverfront site
Under these same conditIOns, the riverfront sites might attract a
restaurant or office development that takes advantage of the riverfront
amemty, and thiS development could be compatible with nodal development
goals
If sewer servIce IS extended along Franklm Boulevard, there may be
demand to redevelop some parcels m the nodal area frontmg Franklm for
tYPical suburban strip development gas statIOns, convemence stores, fast
food, and the like ThiS auto-oriented development would not have the
characteristics deSired m nodal development areas To aVOid thiS problem,
the City of Sprmgfield would need to have pohcles preventmg mcompatlble
development m the nodal area before extensIOn of sewer service along
Franklm
Remember, however, that thiS IS a 3-4 year forecast Nothmg can happen
untIl sewer service IS available, and many other Issues (e g , the
transportatIOn network, dramage) will have to be resolved before slgmficant
development should be allowed That IS a lot to ask of the umncorporated
Glenwood area m that amount of time
I
JASPER-NATRON I
I
The area Immediately north of the Jasper-Natron North node IS a
I
recently-developed smgle-famlly residential subdivIsion, and the portIOn of
the North node wlthm city hmlts IS Immediately south,ofthls development
Springfield Nodes Market AnalysIs
and Development Strategy
ECO Northwest
February 2003
I
Page 5-7
Page 5-8
We expect contmued demand for smgle-famlly residential development m
this area, and we expect such development to occur m the portIOns ofthe
North node that are wlthm city limits If sewer service IS available
EXlstmg slllgle-famlly development III the area IS on relatively small lots
that are not mcompatIble with nodal development, but Widespread smgle-
family development m the North node before adoptIon of poliCies to ensure
nodal development may erode potential nodal qualities m the area
Given the locatIOn on the urban frlllge, poor access, lack of services to
commercially-zoned sites, and relative proximity of good shoppmg around the
1-105/ Mam mtersectlon, we do not foresee any demand for retail or office
development III the North node m the short run The Jasper-Natron South
node IS so far away from urban servICes needed to support development that
any urban development III the area IS unhkely over the next five years
MOHAWK
It IS unlikely that market rents m Sprmgfield will support (Without City
assistance) urban-type multi-family reSidential development m the Mohawk
nodal development area, partIcularly for small complexes that would fit on
vacant or redeveloped parcels m the area For traditIonal multifamily umts
(e g , 2-3 story garden apartments), there IS not much vacant land we would
not expect more than one or two developments ofthls type m the short run
(even that seems optimistic)
Big-box retail development III the northern Mohawk area mdICates that
there may be demand for redevelopment of sites for further big-box retail m
the next five years, particularly If economiC conditions Improve Big-box retail
IS not compatible With the high-denSity and mIXed-use goals of nodal
development, so the City may want to adopt pohcles to preclude this style of
development m the Mohawk nodal development area
RIVERBEND-WITH HOSPITAL
The PeaceHealth hospital development m Rlverbend would boost demand
for reSidential, retail, and office development III the area ConstructIOn of
IllterlOr streets and extensIOn of utlhtIes would need to occur for development
ofthe area, so It would probably be at least two years before any development
m Rlverbend became aVailable on the market Given this assumptIOn, we
beheve that Rlverbend could absorb three years of the high-end of demand for
smgle-famlly attached and apartment umts m Sprmgfield nodal Sites, as
shown m Table 3-11 ThiS translates mto demand for 180 smgle-famlly
attached and apartment umts over the next five years
The hospital development reqUires the extensIOn of PIOneer Parkway to
connect With Beltlme to handle traffic m the area The hospital development
Will generate additIOnal demand for retail busmesses m the area, and the
extensIOn of PIOneer Parkway will create a commercial development site on
an artenal roadway near a key regIOnal mtersectlOn These conditIOns could
February 2003
Springfield Nodes Market AnalYSIS
and Development Strategy
ECO Northwest
create demand for development of most or all of the commercial development
called for m the PeaceHealth development proposal, 105,000 sq ft This
amount of development IS not lllconslstent the regIOnal demand for
commercial development shown m Table 3-8
RIVERBEND-WITHOUT HOSPITAL
The City of Sprmgfield IS m the process of adoptmg reVISIOns to the
Gateway Refinement Plan that will allow the hospital development These
reVISIOns will stay m place even Ifthe hospital does not develop at the
RlVerbend site These reVISIOns will mamtam the medIUm-density residentIal
character ofthe area, but would allo~ the City to designate more land for
commercial use and give the City more flexibility m locatmg commercial land
than current Gateway Refinement Plan policies The mtentlOn of these
reVISIOns IS to give the City more flexlblhty m rmplementmg nodal
development m Rlverbend With or Without the hospital development
As under the With-hospital scenariO, we assume that It would take at
least two years (maybe more) for extensIOn ofutIhtles and constructIOn of
roadways necessary to brmg development m RlVerbend to the market
Without the hospital, we beheve that Rlverbend could absorb up to three
years ofthe low-end of demand for smgle-family attached and apartment
umts m Sprmgfield nodal sites, as shown m Table 3-11 This translates mto
demand for about 90 smgle-famlly attached and apartment umts over the
next five years
The City of Sprmgfield mtends to extend PIOneer Parkway to connect
With Beltlme With or Without the hospital development Without the hospital,
however, the need to extend PIOneer Parkway IS less urgent and It may not
occur m the next five years We assume that the City will locate Rlverbend's
commercial center near the PIOneer Parkway extensIOn, and once that
roadway IS extended It will create a vacant commercial development site on
an arterIal roadway near a key regIOnal mtersectlOn Demand for commercial
development would be less Without the hospital development Smce
residentIal demand IS reduced by 50% Without the hospital, we assume that
a commercial site m the RlVerbend node could absorb half of the commercial
development envIsIOned m the PeaceHealth proposal, ~r about 50,000 sq ft
This IS about the size of a small neighborhood shoppmg center With a grocery
and a few other convemence oriented retail stores '
DEMAND TO 2015
Springfield Nodes Market AnalYSIS
and Development Strategy
Estlmatmg demand through 2015, the end of the T~ansPlan planmng
period, IS more speculative than estImatmg short-run demand because the
longer tIme perIOd allows more opportumtles for unseen events to effect
demand and supply conditions m the regIOn I
I
Concept plans for each of the Sprmgfield nodal development areas
,
desCribed a VISIOn for long-run development ofthe areas Unfortunately, only
I
the plans for Rlverbend and Glenwood quantify the amount of new
,
I
February 2003
ECO Northwest
Page 5-9
development and redevelopment expected m the nodes We used data
presented m Chapters 3 and 4 and assumptIons about development to
estimate demand m the remammg Sprmgfield nodal development areas Our
estimate of demand for development m Sprmgfield nodal sites through 2015
IS shown m Table 5-2 As m Table 5-1, these estImates assume no special City
assistance on development
Note that the demand estimates here are for the entire period 2003 to
2015 Thus, they mclude any short-run demand shown m Table 5-1
Table 5-2 Potential development In Springfield nodal development areas, 2003-2015
Node
Downtown
Spnngfield
Glenwood
Jasper-Natran
North
Jasper-Natran
South
Mohawk
Rlverbend - with
hospital
Rlverbend -
without hospital
Residential
Some lnfill and renovation
of bUIldings With apartments
above retail
6005800 units at an
average net density of 20
units/acre
2,000 units
425 units
Some multi-famIly Infill, on
the order of 4081 00 units
882 slOg Ie-family attached
and multi-famIly units
1,350 single-family attached
and multI-family umts
Source ECONorthwest
Page 5-10
Retail
Pnmanly
renovation of
eXisting bUildings
50,0008100,000
at an average
FAR of 0 25
350,000 sq ft
office
430 000 sq ft, pnmanly office and fiex
Industnal With some retail
80,000 sq ft, primarily retail With some
office uses
Office
Some renovation of
bUildings With offices
above retail
100,00008200,000
sq ft at an average
FAR of 0 380 5
pnmarlly retail With some
Notes
Depends on protecting the nodal
development area from typical strip
development along Franklm Boulevard
Development based on land supply and
capacity, see Table 5-3 for assumptions
used to estImate development
Depends on protecting the nodal
development area from typical strip and
big-box development
105,000 sq ft of office and retail
Depends on prOVIsion of Internal streets
and utlhtles, retail depends on
extension of PIoneer Parkway
105 000 sq ft of office and retail
The demand m Table 5-2 IS the potentwl demand By that we mean that
for any given node, It IS not beyond the realm of market realitIes that the
amount of development shown could occur by 2015 It IS optimistic, but
pOSSible But, what IS pOSSible for one node by Itself IS not pOSSible for all
nodes collectively Not all nodes can develop to the potential shown m Table
5-2 durmg the tIme perIOd If one does, the others probably Will not We
return to that pomt later
The estimates m Table 5-2 are based on data presented m Chapters 2-4
of thiS report and assumptIOns about the type and density of development m
Sprmgfield nodal development areas The followmg sectIOns discuss key
factors mfluencmg these conclUSIOns by node
DOWNTOWN SPRINGFIELD
Smce Downtown Springfield IS primarily developed, we expect only a few
mfill and redevelopment proJects m thiS nodal development area ReSidential
development m Downtown Sprmgfield Will consist of mfill developments on
small lots, and renovatIOns of bUlldmgs that mclude apartments over ground-
floor retail uses
February 2003
ECO Northwest
Springfield Nodes Market AnalYSIS
and Development Strategy
We do not expect relative rent levels m Downtown Springfield to Justliy
large amounts of new retail or office development, either on mfill sites or by
replacmg of eXlstmg structures Retail developments m Downtown
Springfield WIll consist almost entIrely of renovatIOn of eXlstmg bmldmgs to
provide higher-quahty space, and office development Will consist mamly of
renovatIOns of buildmgs to provide office space over ground floor retail uses
There IS, of course, plenty of thmgs that could happen to make us wrong
on thiS For example, If we had made that forecast two years ago, and then
the City of Sprmgfield had been selected for the federal courthouse, we would
have been wrong the courthouse would have subSidized some private
development and mcreased demand for office space so that private-market
development, without subSidy would have been feasible
As another example, we noted above that Chambers CommumcatlOn has
a large site m the Downtown node, and the financial capabilities to redevelop
It Though they face the all economIC realities we have described, they may be
able to take a longer-run view and accept more risk, and thus be willmg to
redevelop m the absence of City assistance or what we would see as favorable
economic conditIOns
GLENWOOD
The potential development level for the Glenwood nodal development area
shown m Table 5-2 are drawn from the Glenwood Riverfront Specific Area
Plan The JustificatIOn for the market potential of that development concept
IS described m detail III reports relatlllg to tha t node
JASPER-NA TRON
The Jasper-Natron concept plan did not mclude an estimate of the level of
development expected III the nodal development areas To estimate
development potential m these nodes, we used data on the amount ofland m
the nodes from Chapter 3 and assumptIOns about land use by type and
development denSity The data, assumptIOns, and results are shown m Table
5~ !
Springfield Nodes Market AnalysIs
and Development Strategy
ECO Northwest
February 2003
Page 5-11
Page 5-12
Table 5-3 Potential development In the Jasper-Natron
nodal development areas
TransPlan Node Cateoorv
Total Acres
% Roads and Public Use
Remalnlno BUildable Acres
% Residential
Residential Acres
Average Density (DU/Acre)
Residential Units
% Commercial/Employment
Commercial/Employment Acres
Average Density (FAR)
So Ft Commerclal/Emolovment
Source ECONorthwest
JasDer North
Nelohborhood
1438
25%
1079
75%
809
25
2,022
25%
270
03
352,346
Jasoer South
-
Emolovment
756
25%
567
30%
170
25
425
70%
397
025
432,224
The estImates m Table 5-3 are based on the followmg assumptIOns
. We used the development described m the concept plan to assign
TransPlan node categories to the nodal development sites,
Neighborhood for the Jasper North node and Employment for the
Jasper South node
. We estimated that 25% ofthe nodal development areas would be
needed for streets and public areas, the nodes currently do not have
streets needed for regIOnal access or mternal cIrculatIOn Remammg
land m the nodes IS considered bUildable for the rest of thiS analysIs
. TransPlan states that land uses m Neighborhood Nodes should be 70-
85% residentIal and 5-25% commercial, and Employment Nodes
should be 10-30% residential and 60-85% commercial (with the rest
m public uses) We used these ranges to select the share of bUildable
land m residentIal and commercial uses m the Jasper nodal
development SItes
. We assumed that the Jasper nodes would develop at densIties slightly
higher than tYPical developments, consistent with nodal development
goals
MOHAWK
We expect residential development m the Mohawk nodal development
area to consist primarily of small proJects on small mfilllots The Mohawk
node has 4 6 vacant and redevelop able residential acres, which would support
about 80-120 multi-family umts at a density of 20-25 umts/acre
We expect retail development m Mohawk to be modest as well The
Mohawk node has about 6 vacant and redevelop able commercial acres, which
would support about 80,000 sq ft of development at a FAR of 0 3 ThiS
development will be primarily retail but may mclude some office space We do
February 2003
ECO Northwest
SpringfIeld Nodes Market AnalysIs
and Development Strategy
.
not expect relative rent levels III the Mohawk node to JustIfY multi-story
development With apartments or offices over retail uses, most commercial
development m the node will be smgle-story
RIVERBEND
The development potential shown m Table 5-2 IS drawn from the proposed
PeaceHealth development concept
SUMMARY AND IMPLICATIONS
Trylllg to compare some estImate of market demand for development m
nodes to the concept plans for the nodal development areas IS difficult
because most ofthose concept plans do not quantifY the amount of
development expected The two nodes for wh,ch we do have estimates of
development, Glenwood and Rlverbend, have plans for over 800 reSidentIal
umts m each (1,600 total) For Jasper-Natron, we were able to estimate
development potentIal because they are primarily greenfields we made
assumptIOns about average densIties and apphed those densItIes to the
amount of bUildable land to calculate development potential The small
amount of vacant land m the Downtown and Mohawk nodal development
areas means either that (1) the expected amount of development Will be
small, or (2) we have to make some highly speculative assumptIOns about
redevelopment
The result of all those assumptIOns and calculatIOns IS that for the land
mSlde the nodal boundaries of the SIX nodes of mterest, the concept plans
suggest that somewhere between 3,900 and 4,675 new reSidential umts will
be bUilt between now and when the areas are bUilt out (the plans are
mdefimte about when that would be)
The assessment m Chapter 3 suggests that the likely average for
reSidentIal development m all Sprmgfield nodes (not Just the SIX m thiS
study) IS on the order of 40 to 80 dwellmg umts per year (about 900 umts
over the 2001-2015 period), substantially less than the potential shown m
Table 5-2 What does that mean? There are several pOSSible mterpretatlOns
. The concept plans are fine, and our estimates of demand m nodes IS
too peSSimistIc We thmk thiS IS the wrong mterpretatlOn Our
estimates may prove to be on the low Side, but we doubt that they are
low by a factor of 4 to 5
. The concept plans are fine, but they are plans for a much longer period
than the 15 years we are usmg m thiS study ThiS IS a plausible
mterpretatlOn ThiS conclUSIOn has Important ImphcatlOns for
ImplementatIOn for example, about whether the City should try to
develop all nodes simultaneously, or work III series on one or two
nodes at a time Chapter 6 and our subsequent final report at the end
ofthls proJect Will address that Issue m more detail
Springfield Nodes Market AnalYSIS
and Development Strategy
ECO Northwest
February 2003
Page 5-13
Page 5-14
. The concept plans are too aggressive about density Tins may be true
m the long run It IS almost certamly true m the short run Because of
the hkehhood ofthe PeaceHealth development, the concept plan for
RIVerbend looks the most realistIC now The Glenwood concept plan IS
not obVIOusly untenable, but a lot ofthmgs must happen before the
kmd of development It enVISions becomes a reality The Downtown
and Mohawk areas have langUished for a long time without
slgmficant public mvestment, It IS hard to see that turnmg around
soon Jasper-Natron IS a greenfield site with the potentIal to
accommodate density, but creatmg a node from scratch IS an
expensive propositIOn Development there IS likely to start with the
lower-density residential development, with higher-density residential
and commercial followmg
Even though the concept plans are probably aggressive, our
assessment IS that they are not wildly so The City's long run VieW
should be somethmg to aspire to OptImistIc plans are not a problem
as long as they are not accompamed by Implementmg ordmances
whose reqUirements for denSity and amemty are so at variance with
current market realities that they are effectively a prohibitIOn on
development We return to that pomt m Chapter 6
Table 5-2 shows that the concept plans up to 1 3 millIOn sq ft of retail
and office development at bmldout ThiS amount of development appears
supportable by forecasted employment growth m the regIOn, whICh IS
expected to generate demand for 9 5 to 15 million sq ft of development for
the Trade, FIRE, Services, and Government sectors over the 1995-2015
period (see Table 3-8 m Chapter 3)
February 2003
ECO Northwest
Springfield Nodes Market AnalysIs
and Development Strategy
.
Implementation
Chapter 6
Many commumtles m the Umted States have tried to Implement
somethmg like nodal development Many of the Issues relatmg to
Implementmg nodal development are common across commumtles, and many
ImplementatIon plans have common themes and strategies In additIon, there
have been many studies oftools and strategies to Implement higher density
mixed-use centers m urban areas
This chapter begms with a summary of key ImplementatIOn Issues raised
by the market analysIs for each node These ImplementatIOn Issues, along
with plan elements, tools, and strategies that have been found most effectIve,
are the basIs ofthe development strategy at the end ofthls chapter The
development strategy m this report IS based solely on the market analysIs
and plan review m this report-the development strategy Will be refined later
m this proJect to develop final strategic recommendatIOns for the City of
Sprmgfield
IMPLEMENTATION ISSUES BY NODE
DOWNTOWN SPRINGFIELD
There has been very httle development actIvity m Downtown Sprmgfield
over the last 25 years The recent renovatIOn ofthe Emerald Arts buildmg
and ongomg renovatIOn of the McKenZie Theater are encouragmg Downtown
Sprmgfield need vIsible, short-term, and successful proJects to create
momentum towards revltahzatlOn There are several actIOns the City of
Sprmgfield can take to help create momentum Downtown
. Contmue to support private orgamzatlOns such as the Sprmgfield
Renaissance Development CorporatIOn that are workmg to Improve
Downtown
. Use constructIOn ofthe Springfield StatIOn as an opportumty to make
pedestrian and streetscape Improvements
. Site of other pubhc faclhtles to help create momentum
The Sprmgfield StatIOn SpeCific Area Plan lIsts two low-cost proJects that
would Improve Downtown ongomg mamtenance and clean-up of streets and
Sidewalks and pedestrian hghtmg
Busmesses and developers frequently mentIOned a lack of parkmg as an
Issue AnalysIs ofparkmg spaces available Downtown, however, shows that
there IS suffiCient parkmg wlthm walkmg distances of bus messes, but m
many cases It IS not vIsible from the busmesses or Mam St Improved slgnage
and map handouts could mcrease awareness of available parkmg The
Springfield Nodes Market AnalysIs
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February 2003
Page 6-1
Page 6-2
Sprmgfield StatIOn plan also suggests purchasmg and removmg some
buildmgs to create additIOnal parkmg vIsible from Mam St
Downtown Sprmgfield has traditIOnally been a center for government
offices The City should adopt a pohcy to contmue to site pubhc facilities m
Downtown Potential future public facilities mclude an expanded hbrary and
Improved police statIOn
A low- or no-mterest loan fund should be estabhshed to loan funds for
Downtown busmess Improvements such as Improved slgnage, fa9ade
renovatIOn, and new awmngs
A private non-profit Downtown AssociatIOn with a downtown manager IS
needed to lead Downtown marketmg, mamtenance, and security
Current rent levels for retail, office, and residential uses downtown are
not sufficient to support renovatIOn or new constructIOn of bUlldmgs
downtown The CIty can help mcrease rent levels by takmg actIOns to
Improve the Visual appeal and security Downtown The City may also
conSider provldmg financial assistance or mcentJves for renovation and
development Downtown, mcludmg tax abatements for creatmg residential
umts and for seismiC retrofits to eXlstmg bUlldmgs
GLENWOOD
Access from Frankhn Boulevard and cIrculatIOn wlthm the nodal
development area are Critical Issues Current plans call for provldmg access
and circulatIOn by constructmg a new street that would extend north from
the Frankhn/McVay Highway mtersectlOn and turn west to parallel Franklm
Boulevard In additIOn, north-south streets m the nodal development area
would extend the eXlstmg street grid system m Glenwood south of Franklm
Boulevard to mclude the area north of Frankhn Boulevard Improvements to
Franklm Boulevard should mclude or anticipate some mtersectlOns on the
north side that align with street mtersectlOns on the south side
The prOVISIOn of sewer service and storm water dramage IS necessary for
development m Glenwood The City's Capital Improvement Plan mcludes
extensIOn of a sewer trunk hne under Franklin Boulevard and McVay
Highway Stormwater dramage can be prOVided m the nodal development
area by hnkmg It to facilities to the south of Frankhn Boulevard
Improvements to Franklm Boulevard are necessary to prOVide pedestrian
and bicycle faclhtles and Improve ItS aesthetic appeal ConstructIOn ofthe
proposed Bus Rapid TranSit system and extensIOn ofthe sewer trunk line
under Franklin Boulevard Will create an opportumty for additIOnal
Improvements to Franklin mcludmg Sidewalks, bICycle lanes, pedestrian
crossmgs, street trees, and pOSSibly puttmg electriC, phone, and cable services
underground
February 2003
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Springfield Nodes Market AnalysIs
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JASPER-NA TRON
Infrastructure and utlhty services are needed to allow development m the
Jasper-Natron area, mcludmg both the North and South nodal development
areas Key facilities mclude
. The Jasper Parkway ExtensIOn will pass through both Jasper-Natron
nodal development areas, connectmg the current termmus ofI-l05 at
Mam Street with Jasper Road somewhere m the southern portIOn of
Jasper-Natron The Jasper Parkway ExtensIOn IS planned as a 55-
mph faclhty south ofMt Vernon Road, mcludmg the portIOns through
both Jasper-Natron nodal development areas ConstructIOn of this
portIOn ofthe ExtensIOn, however, reqUires Improvements to the
Highway l26/Mam St mtersectIon The locatIOn ofthe Parkway
ExtensIOn, mtersectlOns on the ExtensIOn, and other characteristics of
the ExtensIOn may have Imphcatlons for the locatIOn and orientatIOn
of the nodal development areas
. Local streets must also be constructed for mternal cIrculatIOn m the
Jasper-Natron area These streets will be funded primarily by private
developers
. Sewer Improvements needed m the area mclude a 3-mile sewer trunk
lme extensIOn, a hft statIOn upgrade, and several collector sewer hnes
wlthm the site Total cost of the samtary service m 1998 was
estimated to be $4 5 m1ll1on City staff report' that matchmg funds by
developers and residents will likely come only after the completIOn of
the Jasper Road ExtensIOn, whICh Will spur development m the area
. ExtensIOn of City water service IS expected to cost $500,000 to $1
million for the transmiSSIOn lme extensIOn, $40 to $45 per lmear foot
for distributIOn hnes, and $813 per hookup for mdlvldual water
supply
. An adequate storm water system IS estimated to cost a total of $2 6
mllhon
The Jasper Natron South nodal development area con tams a 33-acre mill
site zoned Special Heavy Industrial ThiS site contams a wood products mill
served by a rail spur, whICh IS currently used to kiln dry veneer ThiS heavy
mdustrlal use may not be compatIble With the higher-denSity and mIXed-use
development envIsIOned for nodes
MOHAWK
The Mohawk nodal development area IS primarily developed, so creatIOn
of a node m thiS area Will reqUire mfill and redevelopment proJects EconomIC
I Clty of Sprmgfield, Prehmmary Staff AnalYSIS of PotentIal Node SItes, 2002
Springfield Nodes Market AnalYSIS
and Development Strategy
- ECONorthwest
February 2003
Page 6-3
analysIs determmed the most reahstlc area for redevelopment IS the Central
Mohawk area, which mcludes the former Ware mart site Density and
mtenslty changes that move the area towards mIXed-use are likely to occur
mcrementally m the Mohawk neighborhood
The Mohawk Boulevard Specmc Plan outlmes strategies that focus on
Improvmg pedestrian facilities and amemty to transform Mohawk from an
auto-dommated, pedestrian unfriendly neighborhood to a node that
mtegrates eXlstmg residential areas and the commercial core The Plan also
Identifies a need for Improvements to the mterchange on Highway 126 to
mitigate future congestIOn
EXlstmg roadways, sewer, stormwater, and utIlity service have adequate
capacity for eXlstmg and some additIOnal development SubstantIal new
development, such as an aSSisted hvmg or retIrement home envIsioned near
McKenzle-Willamette Hospital, would reqUIre an upgrade to water and sewer
faCilitIes Internal CIrculatIOn streets may be needed m the Central Mohawk
area to give It nodal characteristics
RIVERBEND
PeaceHealth's proposed hospital development has removed most of the
tYPical barriers to nodal development m the Rlverbend area PeaceHealth has
offered to pay for Improvements needed to develop the area, mcludmg the
PIOneer Parkway extensIOn, mternal circulatIOn streets, sewer, stormwater,
and other utilitIes In addition, the PeaceHealth development will boost
demand for housmg, retail, and office uses m the node
Approval ofthe Peace Health proposal reqUires amendments to the
Gateway Refinement Plan and Metro Plan Diagram The process to make the
necessary reVISIOns IS currently underway The proposed amendments
preserve the City's ability to Implement nodal development m Rlverbend
while concurrently processmg PeaceHealth's Master Plan applicatIon
RELATIVE RIPENESS OF NODES FOR
DEVELOPMENT
The development strategy m thiS chapter cuts across the ImplementatIOn
Issues m specmc nodal development areas to create an overall strategy for
Implementmg nodal development m Sprmgfield A crUCial consideratIOn m
developmg thiS strategy IS tImmg-not all ofthe nodal development areas
Will develop at once, nor can the City of Sprmgfield afford to make the
mvestments that would allow all nodes to develop at once Therefore, the City
will need to prioritize ItS public mvestments to correspond With the likely
tlmmg of development m the designated nodes
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February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
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.
Our sense of the hkely tlmmg of development m each node follows
. Rlverbend The PeaceHealth proposal makes development m this node
very likely m the short-run The fact that PeaceHealth IS wIllmg to pay
for mfrastructure Improvements, the potential amellltlf;S ofthe site, and
that the hospital will generate demand and mcrease the density of
development m the area, makes this an excellent opportulllty to create an
early, successful example of nodal development This node should be
Spl1ngfield's highest priority
. Downtown This area already has many characteristics of a node-
higher density, a mix ofland uses, and a pedestrian environment
ConstructIOn of the Sprmgfield Station and BRT will Improve transit
serVice, remforce Downtown as a regIOnal center, and prOVide an
opportulllty for streetscape Improvements Development activity m
Downtown will probably be limited to bUlldmg renovatIOn m the short-
run, and may mclude some mfill or redevelopment m the long-run
EXlstmg mfrastructure capacity IS suffiCient to support renovatIOn and
mfill development The City of Sprmgfield should contmue to support and
enhance Downtown's role as a node
. Glenwood Development m this area IS currently several years off
because extensIOn of sewer service and stormwater dramage IS necessary
for development to occur ExtenSIOn of a sewer trunk line under Franklin
Boulevard IS currently m the City's Capital Improvement Program, and
the City IS workmg on a storm water management plan for the nodal
development area ExtenSIOn of the sewer and constructIOn of BRT Will
create an opportulllty for pedestrian and streetscape Improvements to
Frankhn Boulevard The City should leverage planned constructIOn to
make Improvements that Will support nodal development, such as
antlclpatmg street mtersectlOns on the north Side of Frankhn Boulevard
Once sewer and stormwater dramage are available, the vacant riverfront
site at the east end ofthe nodal development area IS most likely to
develop first, but this Will reqUire cooperatIOn among property owners and
site access Issues will need to be resolved
. Mohawk We expect demand for mfill and redevelopment m this area
Will be low over the short-run, except that there may be pressure to
redevelop sites for big-box retail stores Infrastructure capacity appears
suffiCient to support some mfill development and redevelopment that does
not slgmficantly mcrease the overall mtenslty of development m the area
The City ofSprmgfield should enhance the ability of Mohawk to functIOn
as a node by makmg streetscape and pedestrian Improvements to make
the area more attractIve m general, more connected to surroundmg
reSidentIal uses, and more attractive for walkmg The City can also take
actIOns to encourage mfill developments (partIcularly multi family
reSidential) and renovatIOn or redevelopment of vacant retau buildmgs
. Jasper-Natron. Development ofthe Jasper-Natron nodal development
areas cannot occur untIl substantial mvestments are made m
Springfield Nodes Market AnalYSIS
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February 2003
Page 6-5
.
transportatIOn, sewer, and utility mfrastructure Substantial
development m the area IS unhkely to occur until after constructIOn ofthe
Jasper Road ExtensIOn, but the North nodal development area may
experience some low-density residential development m the short-run As
a greenfield site, Jasper-Natron could see development actIvIty m advance
of any mfill or redevelopment activity m Mohaw k, Downtown, or possibly
Glenwood once transportation and utlhty Improvements are m place
Investments m Jasper-Natron should be Sprmgfield's lowest prIOrity
DEVELOPMENT STRATEGY
A city has three types of tools to encourage nodal development
. Plan desIgnatIOns, zonIng, and development code To create
nodes, the City's pohcles must allow development compatible With
nodes City pohcy should reqUIre some CritIcal elements of nodal
development, such as higher densIties and pedestrian amemtIes, to
protect nodes from mcompatlble development The risk of settmg
requIrements for development m nodes, such as mlmmum denSIties, IS
that the reqUirements preclude any development The City's challenge
IS establish requIrements that will ensure that development m nodes
IS compatible With nodal goals, while allowlllg development to occur m
nodes
. Pubhc investments Many of Sprmgfield's nodal development areas
reqUIre pubhc mvestments m streets, sewer, stormwater, and water
mfrastructure before development can occur The tImmg, locatIOn, and
scale ofpubhc mvestments can determme the tlmmg, locatIOn, and
scale of development m nodes The City can support development III
nodes and make higher-density development more feaSible by
provldmg mfrastructure m nodes at a reduced cost to developers The
City can also support nodal development With mvestments that are
not necessary for development, such as streetscape Improvements,
transit service, parks, and open space
. Fees and tax pohcy The City can encourage development m nodes
and help make higher denSity development more feaSible by reduclllg
development fees and property taxes III nodal development areas or for
speCific types of development
MAKE ZONING AMENDMENTS AND APPLY THE NODAL
DEVELOPMENT OVERLAY IN NODES
In each of the nodal development areas, unforeseen development
proposals could drastICally change the scale and type of development
antIcipated III nodes The PeaceHealth proposal m Rlverbend illustrates thiS
pomt-that proposal could not have been foreseen even one year ago In
additIOn, eXlstmg zomng III nodal development areas allows low-denSity
development that may not be compatIble With nodal development goals In
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February 2003
ECONorthwest
Springfield Nodes Market AnalYSIS
and Development Strategy
.
.
this context, the City of Sprmgfield needs to preserve the opportumty to
create nodes m the designated areas by applymg the Nodal Overlay zone m
the nodal development areas Smce the Nodal Development Overlay modmes
the underlymg zonmg, the City should make zomng amendments m nodes to
reflect the desired pattern and mtenslty of development
Smce nodes will develop over a long period ofhme, zomng should be
flexible to allow for phased development Flexlblhty m zomng IS not the same
thmg as havmg poor standards Indeed, nodal development should be gUided
by a set of strong design and/or performance gUldehnes The VISIOn for nodes
reqUires high quahty development and Sprmgfield's development codes
should not allow shoddy development or proJects that do not support the
goals of nodal development Design gUidelines should strongly encourage the
type of development that IS desired (whIch will vary from node to node), and
strongly prohibit that whICh IS not
Recogmzmg that nodal development IS Implemented over time and that
many nodes will not achieve their maXimum density for many years to come,
It IS Important to accommodate mterlm uses while the market matures
However, It IS also Important that these mterlm uses and densIties do not
preclude or make more dIfficult future mtenslficatlOn Shadow-plattmg IS a
tool that allows an area to be developed at a lower density Imtlally, but m
such a way so as not to Impede future mtenslficatlOn For example, when
developmg on large parcels, buildmgs should be placed mlocatlOns that will
allow for future streets to be made Without havmg to demolish bUlldmgs
Surface parkmg lots should be designed to normal street standards so that
they can be redeveloped over time With structured parkmg and commercial
bUlldmgs, allowmg for a grid street structure to emerge over time The CIVIC
Neighborhood m Gresham has Implemented this phased approach While
mltlalmfrastructure costs can be higher, the long-term benefits are greater
PROVIDE INCENTIVES FOR DESIRED NODAL DEVELOPMENT
PRODUCTS
Higher densIties and amemtles desired m nodes reqUire higher-cost
constructIOn techmques that can reduce the feaSibility of nodal development
For this reason, It may be necessary to make nodal development more
feaSible by cuttmg development costs, provldmg financial aSSistance, or
provldmg mcentlves for desired development These policies can also help
attract private mvestment mto nodes relative to other areas Some useful
mcentlve programs mclude the followmg
EXPEDITED PERMITTING
The adage of "time IS money" IS truer for the development commumty
than for Virtually any other sector of bus mess Sprmgfield should reward
developers who choose to develop m nodes and propose proJects that meet the
goals and quality envIsIOned m the nodal plans by expedltmg the permit
process
Springfield Nodes Market AnalYSIS
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.
FEE WAIVERS
Walvmg certam development fees for supportIVe development m nodes
acknowledges the added public benefit that IS gamed by such proJects
System development charges, permit apphcatlOn fees, mspectlOn fees, and
other fees should be considered under this program
ALLOW WOOD FRAME CONSTRUCTION
BUlldmg codes should allow three, four, and five-story wood frame
constructlOn m nodes to reduce the cost ofbUlldmg dense or mIXed-use
proJects This type of constructlOn has facilitated many mIXed-use proJects m
the Portland regIOn
REDUCE PARKING REQUIREMENTS
Reduced parkmg ratIOs should be allowed m nodes This both IS m
response to the goal that more people will use alternate means of
transportatIOn m nodes and that the compact nature of nodes will facilitate
shared parkmg opportumtles Lower parkmg options can also reduce the
amount of land needed for development, which mcreases denSity and helps
make proJects more feasible
TAX INCREMENT FINANCING
Urban renewal IS one ofthe most powerful tools available to fund
revltalizatlOn proJects Urban renewal may be appropriate for one or more
node sites to fund mfrastructure, housmg, parks, planmng, and many other
elements
MULTIFAMILY HOUSING TAX CREDITS
Sprmgfield can deSignate nodes as eligible sites for tax credit housmg
proJects, glvmg an mcentlve to developers to build multifamily housmg
proJects
FOCUS PUBLIC INVESTMENTS INTO NODES
Sprmgfield should focus pubhc mvestment m nodes to support the nodal
concept and to bUild market momentum to attract development Nodes
should receive prIOrity fundmg for public works proJects, streetscape proJects,
and other pubhc mvestments Adhermg to the prmclple, "public commitment
precedes private mvestment," Sprmgfield's commitment to enhancmg the
quahty and value of node sites will set the stage to attract private
mvestment
All of Sprmgfield's nodes need some level ofpubhc mvestment to support
nodal development Given the relative ripeness ofSprmgfield's nodes for
development, the prlOrlty for publIc mvestments appears to be as follows
February 2003
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.
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SUPPORT DEVELOPMENT IN RIVERBEND FIRST
Fundmg by PeaceHealth will reduce the City's costs for pubhc
mfrastructure m this area, and RlVerbend has good prospects for provldmg
an early example of successful nodal development m Sprmgfield
FOLLOW-THROUGH ON PLANNED INVESTMENTS IN GLENWOOD
ExtensIOn of sewer service and stormwater dramage IS necessary for
development to occur While not necessary for development, Improvements to
Frankhn Boulevard and prOVISIOn of BRT service Will Improve Glenwood's
Image area and enhance market support for nodal development m the area
MAKE STREETSCAPE AND PEDESTRIAN IMPROVEMENTS IN
DOWNTOWN AND MOHAWK
Both of these areas already have some charactenstlcs of nodal
development Streetscape and pedestrian Improvements will Improve the
Image ofthese areas, makmg them more attractIve for development, and
Improved pedestnan environments will enhance their functIOn an nodes
MAKE JASPER-NATRON IMPROVEMENTS A LOW PRIORITY
Both of the nodal development areas m Jasper-Natron reqUIre substantial
public mvestments m transportatIOn and mfrastructure to allow development
to occur This area IS located at the urban frmge, away from populatIOn
centers, maJor transportatIOn routes, and frequent transit service m the
regIOn In the short-run, market demand for development m Jasper-Natron IS
pnmarlly for low-denSity reSidential, some commercial, and mdustrlal uses
It Will take time until populatIOn growth and development pressure m the
regIOn Will support nodal development m Jasper-Natron For this reason, the
City should make public mvestments to support development m Jasper-
Natron a low prlonty
BE FLEXIBLE AND OPPORTUNISTIC
There IS uncertamty about development opportumtles m Sprmgfield's
nodal development areas A smgle development proposal, such as the
PeaceHealth proposal m Rlverbend, could drastIcally change the prospects for
development m a node from those described m this report The City of
Sprmgfield should be fleXible enough to take advantage of opportumtles
Springfield Nodes Market AnalysIs
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.,
l
/
I
',-
.'
FILE
cory
WI5Ti~ CDf
MEMORANDUM
CITY OF SPRfNGFlELD
To
FilE
l'\A~ 11.07
TO
SprIngfield Planning CommissIOn
C;OMMISSION
TRANSMITTAL
FROM
Sarah Summers, Planner II s:s.
SUBJECT
Conceptual Development Plan Approval
The PIerce Trust, Jo No 98-02-47
ISSUE
The Planning CommIssIOn must decIde whether or not to approve a Conceptual Development Plan
(CDP) for property zoned Campus IndustrIal (CI)
DISCUSSION
The sIte IS located north of Marc 01 a Road, east of approxImately 27th Street and west of 31" Street It IS
on Tax Assessor's Map 17-02-30, Tax Lot 1800 The area that IS zoned Campus IndustrIal IS
approximately 56 acres SectIOn 21 030 of the SprIngfield Development Code (SDC) reqUIres approval a
a CDP for a Campus Industrial SIte prIor to the development of the site SDC 21 030(5) reqUires the CDP
applIcatIOn to be revIewed m accordance With Type III procedure
The applIcant IS requestmg approval of a Conceptual Development Plan for a Campus IndustrIal SIte
pnor to development The CDP has addressed the CrIterIa lIsted m SDC 21 030 for CDP approval The
CDP mdlcates that the SIte can be served With adequate utIhtIes and access However, thIS CDP IS too
general for a thorough analysIs, and therefore and more complete reVIew must be relegated to review of
specIfic development applIcatIOns The staff report addresses some detaIls that were not mcluded ill the
CDP and makes submittal of reqUired details a conditIOn of future development apphcatIons
RECOMMENDA nON
Staff recommends APPROVAL of the Conceptual Development Plan WIth the mcorporatIon of the staff
report and CondItIons of Approval
ACTION REQUESTED
Plannmg CommissIOn approval of thIS request by motIon and SIgnature of the Plannmg CommISSIOn
ChaIrperson on the attached Fmal Order
ATTACHMENTS
Attachment I Staff Report and Fmdmgs WIth attachments
Attachment 2 Fmal Order
Attachment 3 SubmIttal from Applicant
CITY OF SPRINGFffiLD
DEVELOPMENT SERVICES DEPARTMENT
CONCEPTUAL DEVELOPMENT PLAN
STAFF REPORT
Attachment 1
1--1
DATE OF LETTER
June 5, 1998
JOURNAL NUMBER
98-02-47
APPLICANT/OWNER
The Pierce Trust
Allan PIerce, Trustee
2515 Terrace View Dnve
Eugene, OR 97405
EXPLANATION OF THE NATURE OF THE APPLICATION
The apphcant IS requestmg approval of a Conceptual Development Plan (CDP) for a Campus Industnal
(CI) site Sprmgfield Development Code (SDC) 21 030(1) reqUires approval of a CDP for a Campus
Industnal site pnorto development of the site SDC 21030(5) reqUires the CDP apphcatIon to be
reviewed m accordance With Type III procedure
LOCATION OF PROPERTY
The property mvolved III thiS request IS located north of Marcola Road, east of approxImately 25th Street
and west of 31 n Street It IS on Assessor's Map 17-02-30, Tax Lot 1800
DECISION
Recommended approval WIth the mcorporatlOn of the staff report
BACKGROUND/SITE INFORMATION
Tbe area of the site zoned Campus lndustnalls approximately 56 acres of flat farmland The subject
property was part of a larger area of "Pierce Property" which consists of MedIUm DenSity ReSidential
(MDR), Commulllty Commercial (CC), Llght/MedlUm Industrial (LMI), and the Campus Industnal The
zonmg and legal descnptlons for these zones were adopted as Sprmgfield Ordmance 5160 There were
subsequent changes to the ongmal zOlllng and Metro Plan which corrected conflicts between the zOlllng
and the 1987 VerSIOn of the Metro Plan (Jo No 95-02-36) Later changes to the area are reflected m the
followmg Journal Numbers 96-10-207 LMI subdlVlslOn, 96-10-208 zone change, 97-02-29 lot hne
adjustment, 97-01-13 CDP, 97-04-80 appeal
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Jo No 98-02-47
INFORMA nON TO BE CONSIDERED FOR APPROVAL
SDC 21 030 states that applIcatIOns for mltIal CDP approval shall consider to the extent apphcable the
followmg mformatlOn
Natural Features and amenitIes
The applIcatIOn did not address natural features other than to mentIon that there IS a view of the
Coburg Hills The property IS flat farmland The eXlstmg ditch which crosses the property east to
west IS Identified on the Spnngfield Wetland Inventory as a wetland Development ofthe site
may reqUire movmg the ditch, makmg Improvements to the dramage channel, or plpmg the
channel The DlVlslOn of State Lands and the Army Corps of Engmeers must approve any
changes to the wetland
Fmdmg 1 ThiS mformatlOn has not been thoroughly addressed because the presence of
wetlands has not been considered
ConditIOns
1 The D,v,sIOn of State Lands and the Army Corps of Engmeers must approve any changes to
the wetlands if such changes are proposed m future development applIcatIOns
2 Anv applIcatIOn for future development wIll reqUire a comprehenSIve analYSIS of the wetland
as an amenity for the CDP The analYSIS shall be submllted With the applIcatIOn An applIcatIOn
WIll not be accepted wllhout a comprehenSive wetland analYSIS for the entIre sIte The analYSIS
shall consider wetland functIOns and values, stormwater management alld water qualIty and
open space
2 Access and circulatIOn needs
The level of detaIls proVided With the CDP are not adequate enough to analyze the full Impacts
of future development A ComprehenSIve (Major) Traffic Impact Study (TIS) Will be reqUired to
be submitted WIth the first development applicatIon for any or all of the area defined m the CDP
The TIS IS reqUired to be submItted pnor to acceptance of any applIcatIOn submittal The findmg
of the TIS Will determme If additIOnal reqUirements or transportatIOn Improvements are needed
to mitIgate Impacts
The CDP shows a new collector street along the northerly and westerly Sides of the CI diStrict
ThiS collector street nght-of-way wIll need to be dedicated and Improved as a publIc street
whenever any development occurs on the site AdditIonal nght-of-way dedicatIOn at the
,
northeasterly corner of the sIte about 10 feet WIde also must be dedicated to complete the
Improvement of3I" Street Although additIonal nght-of-way IS not readIly apparent, the ultimate
development of the site may reqUire addItIonal nght-of-way to proVide for the traffic circulatIOn
needs of speCific land use proposals The CIty Will IdentIfY these additIonal nghts-of-way as
future development proposals are presented
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Jo No 98-02-47
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Development on any portIOn of the site may reqUire Improvement Agreements for participation
In future street Improvements along any public street that abuts the site The need for
Improvement Agreements will be determmed at the time of development
The proposed collector street shall be used as an access for thiS site and the residentially zoned
property on the north and west of the site as shown on the Conceptual Local Street Plan
CirculatIOn needs and local streets wlthm the site Will be reviewed when development plans are
submitted to the City Whenever development IS proposed wlthm the Site, full street and utility
Improvements wIll be requITed for each proposed street extensIOn and any unImproved street
nght-of-way abutting the site The local street cross sectIOns shall be a minimum of36 feet curb
to curb Within 50 feet of nght-of-way As part of the required Improvements, the applicant shall
construct Sidewalks, curbs and gutters, street paving, sanitary sewers, drainage and street lighting
along the full frontage of each new or unImproved street
Fmdmg 2 The level of detalls provIded WIth the CDP do not adequately address access and
cIrculatIOn needs
CondItIOns
3 A ComprehenSIve Traffic Impact Study (TIS) WIll be reqUIred to be submllted with the first
development applzcatlOnfor any or all of the CDP area The TIS IS reqUIred to be submItted
prIOr to acceptance of any applzcatlOn submIttal
4 The proposed collector street rzght-oj-way must be dedIcated and Improved as a publzc street
whenever any development occurs on the sIte
5 AddItIOnal rzght-oj- way dedIcatIOn at the northeasterly corner of the sIte and about 10 feet
WIde must be dedIcated to complete the Improvement of 31" Street
6 AddItIOnal rzght-oj-way may be reqUIred to provIde for traffic cIrculatIOn needs of specific
land use proposals
7 Improvement Agreements may be reqUlredfor future street Improvements WIth development of
any portIOn of the site
8 The proposed collector street shall be used as an access for thIS sIte and the resldentlOlly
zoned property on the north and east of the sIte as shown on the Conceptual Local Street Plan
9 Full street and utllzty Improvements WIll be requlredfor each proposed street extensIOn and
any ummproved rzght-oj-way abuttmg the sIte whenever development occurs
10 CIrculatIOn needs and local streets wlthm the sIte WIll be revIewed when development plans
are submItted to the CIty
3 Access to artenal and collector streets
The CDP shows frontage on Marcola road, which IS a minor artenal, and 31" Street which IS a
collector street The proposal shows Jomt-use dnveways from Marcola Road and 31" Street No
direct access Will be permitted from Marcola Road One access pOint Will be permitted from 31"
Street as shown on the Conceptual Local Street Map The proposed "Pierce Dnve" IS to be
constructed as a collector street
Fmdmg 3 The CDP shows access pomts whIch WIll not be permztted
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Jo No 98-02-47
CondItIOns
11 The proposed street IS to be constructed as a collector street
12 One access pomt only wdl be permitted from 31" Street as shown on the Conceptual Local
Street Map
4 ProvisIOn of pubhc faclhtles and services
Storm Sewer
The applicant IdentIfied the eXlstmg faclhtles for storm dramage as the storm sewer located at
Marcola Road west of 28th Street and the eXlstmg dramage ditch that crosses the sIte The
proposed CDP does not accurately show the dramage channel The CDP map shows the ditch
runnmg adjacent to U Street, however, the ditch IS adjacent to V Street The applicant dId not
address the fact that portIOns of the dItch adjacent to 31" Street have been piped, and that an
undersIzed culvert has been placed wlthm the ditch to provide a road crossmg from the southerly
portIOn ofthe site to the northerly portIOn
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ThiS channel IS a major dramage faclhty for the Marcola Road area and prOVides dramage
servICe to 420d Street south of Highway 126 Via the Irvmg Slough The West Spnngfield
Dramage Master Plan, dated June 1983, recommends that If thiS channel were piped, the
mmlmum pipe Size would need to be at least 60 mches m diameter Development oftbe site may
reqUire that a larger pipe IS mstaIled, or the channel mamtamed as an open dramage way
Development of the site may reqUire makmg Improvements to the eXlstmg dramage channel or
plpmg the channel The apphcant at the time of development Will need to provide hydrologIC and
hydrauhc analyses of thiS channel and make any improvements needed to mitIgate the unpacts of
the development on thiS faclhty
A complete dramage plan, mcludmg the eXlstmg and proposed gradmg and dramage systems,
Impacts on adJommg properties, and complete hydrologic and hydraulic calculations, are
reqUired to be submitted to, and approved by, the CIty Engmeer pnor to Final Plat approval,
Fmal Site Plan approval, or bUlldmg permit Issuance for any development on the SIte
,
Fmdmg 4 The CDP does not adequately address the storm dramage for the Site because the
dramage drtch is not properly or completely shown
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ConditIOn 13 A complete dramage plan, mcludmg the eXlstmg and proposed gradmg and
dramage systems, Impacts on adjommg propertIes, and complete hydrologIC and hydraulzc
calculatIOns, are reqUired to be submItted WIth any development applzcatlOn An applzcatlOn Will
not be accepted Without a complete dl amage plan It must be approved by the City Engmeer
I
pnor to Fmal Plat approval, Fmal SIte Plan approval, or buddmg permrt issuance for any
development on the sIte
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Jo No 98-02-47
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Storm Water OualItv
Storm Water QualIty IS not adequately addressed m the proposed CDP The CDP mentIOns
engmeermg storm water pre-treatment on larger scale developments Under current City
regulatIOns, whenever more than 5,000 square feet of paved area IS provided on a Site, storm
water qualIty Best Management PractIces (BMP's) must be mcorporated mto the project In
general, a comprehensive water qualIty deSign for large sites such as thiS are more economically
and envIronmentally feasIble, rather than attemptmg to satJsfy thIS requirement on mdlvldual site
plans
The EP A has Issued ItS proposed Phase II rules for the clean water program The EP A and the
state are expected to fully Implement these rules by the year 2002 As these rules are developed,
the CIty will be developmg storm water qualIty programs m comphance WIth these rules
Dependmg upon when the development of thIS site occurs, comphance WIth these new rules will
be reqUired for thiS site
The apphcant shall mclude blOswales, ponds, natural amemtIes or other faclhtIes approved by
the CIty Engmeer A comprehensive plan for Storm Water QualIty IS required With any future
development proposal for tbe entIre site An applIcatIOn will not be accepted as complete WIthOUt
a comprehensIVe Storm Water Quality plan
Finding 5 The two sentences on water detentIOn do not adequately address Storm Water
Qualzty In the proposed CDP
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ConditIOn 14 A comprehensIve plan for Storm Water Qualzty IS reqUIred WIth any future
development proposals for the entzre site incorporating bzoswales, ponds, natural amenitIes or
other faczlltles approved by the City Engineer
Samtarv Sewer
The eXlstmg trunk sewer hne that the applIcant refers to that crosses the Site IS known as the
North Spnngfield Interceptor sewer The North Sprmgfield Sewer Study, dated October 1991,
states that thiS Interceptor Will have adequate capacity for the anticIpated sewer flows m North
Sprmgfield If the South Spnngfield Interceptor IS constructed ConstructIOn of the South
Interceptor IS nearmg completIOn and should be m service m the summer of 1998 Therefore,
adequate sewer capacIty IS available for thiS sIte unless a large water use development IS
proposed In thiS event, an analYSIS ofthe avaIlable capacity Will need to be provIded by the
applIcant at the tIme development IS proposed
Finding 6 Adequate sewer capacIty IS avaIlable for thIS sIte unless a large water use
development IS proposed
Water
The proposed development IS wlthm the Spnngfield City LimIts and WIll receive water servIce
from the Spnngfield Utlhty Board (SUB) There IS currently a 12" waterlme stubbed out of
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Jo No 98-02-47
Marcola Road to the west of the proposed local street and a 12" waterline stubbed out of Marcola
Road on the east side ofthe 28th Street connector There are no waterlines currently extendIng
onto the sIte LocatIOn of the extensIOn of water hnes wIll be dependent upon future
development
Fmdmg 7 SUB wIll be able to prOVIde water servIce for thIS sIte
Electrlcltv
ElectrICal servIce to the sIte would be prOVIded by SUB The nearest electncal connectIon IS
located on the south Side of Marcola Road All electncal servICe IS reqUired to be underground
Fmdmg 8 SUB WIll be able to prOVIde electrIcal servIce for thIS sIte
CondItIOn 15 All electrical servIce IS reqUired to be underground
Ellsements
No easements are proposed by the CDP
Seven-foot WIde Public UtIlity Easements (PUE's) are reqUired along all lot frontages along a
pubhc street In addItIOn, 7'-wlde PUE's WIll be reqUired along all property lines
The eXistIng draInage channel that crosses the sIte does not appear to be In an easement
dedicated to the City When any development occurs on the SIte, an easement will be reqUired for
thIS cbannel The sIze and ahgnment of the easement Will be determIned at the tIme of
development
PortIOns ofthe samtary sewer trunk lme that crosses the sIte may not be wltbm an easement
dedIcated to the CIty Whenever development occurs on the Site, an easement will need to be
reserved for thiS trunk sewer The SIze and ahgnment of the easement Will be determmed at the
tIme of development
AdditIOnal pubhc easements may be reqUired for public samtary, storm and utIlity systems
dependmg upon how servIce IS proVided to each development site The SIze and ahgnment o(any
additIOnal pubhc easements WIll be determIned at the tIme of development
JOInt access and maIntenance easements and agreements Will be reqUired to proVide access to
lots With shared use dnveways AddItIonal pnvate easements may be reqUired for mgress, egress,
samtary, storm, and utlhty systems dependIng upon how service IS proVIded to each development
sIte The SIze and ahgnment of any addltlOnal pnvate easements will be determmed at the tIme of
development
Fmdmg 9 Easements were not addressed m the CDP
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Jo No 98-02-47
ConditIOns
16 Seven-foot Wide Public Ulllzty Easements (P UE 's) are reqUIred along all lot frontages along
a publzc street
17 Seven foot wide PUE's will be reqUired along all property lines
18 Whenever development occurs on the Site, an easement will need to be reserved for the
samtary sewer trunk line
19 AdditIOnal publzc easements may be reqUired for public samtary, storm and utllzty systems
depending upon how service IS provided to each development site
20 Jomt access and mamtenance easements and agreements will be reqUIred 10 provide access
to lots with shared use driveways
21 Private easements may be reqUIred for mgress, egress, samtary, storm, and utllzty systems
dependmg upon how service IS prOVided to each development site
5 Development of needs of future users
The development of the Site [S regulated by SDC ArtJcle 21, Campus Industnal D[stnct Any
development of the property IS reqUIred to comply With all sectIOns of thiS ArtIcle, mcludmg
permitted uses, landscapmg and deSign All publtc llllprovements reqUIred for development of
the site must be deSIgned by a pnvate professlOnal CIVIl engilleer ill conformance With City
codes, standards and specificatIOns The CIVIl engmeer WIll also be reqUIred to proVide
construction mspectlon services
The CDP uses as ItS central theme the creatIOn of up to II lots rangmg m size from 2 5 acres to
8 I acres With access from penmeter streets The CDP subd[v[slOn plan IS not acceptable as
proposed The concept of more lots IS pOSSible, however, the mInImUm development area ill the
CI dlstnct IS 5 acres In addltJon, no direct access to the property Will be allowed from Marcola
Road, and the proposed northern access from 31" Street will not be allowed "P[erce Dnve" IS
sbown illcorrectly on the CDP The proposed collector street IS reqUIred to follow the boundanes
ofzonillg dlstncts on the north and west sides of the subject site "PIerce Dnve" IS reqUIred to
lme up With V Street as shown on the Conceptual Local Street Map and the maps adopted With
the zone changes ThIs correctIOn would also change the proposed lot boundanes The deSign of
the mtersectlOns of the proposed street With 31" Street and With Marcola Road shall be m
accordance With the City'S Collector Street Standards
Any development of the site will necessitate dedicatIOn and constructlOn of "Pierce Dnve" to
proVide publIc mfrastructure for the entire site and the MedIUm DenSIty ResldentJal (MDR)
property to the north The proposed collector street shall be named V Street on the east/west
portIOn and 27"' Street on the north/south portlOn The deSign of the proposed collector street
shall be m accordance With the CIty'S Collector Street Standards The proposed street shall be at
least 36 feet Wide wlthm a 70-foot nght-of-way Access to the subject site and the resldentJal
property to the north and west [S reqUIred to be from the proposed collector street One access
pomt WIll be permItted from the 31" Street connector as shown on the Conceptual Local Street
Map Any other ex[stmg curb cuts along 31" Street shall be closed
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Jo No 98-02-47
Full street Improvements along Marcola Road and 31" Street are reqUired The Improvements
mclude additIOnal pavmg, curbs, gutters, sidewalks, street trees and street hghts
The CDP proposes to umfy the development by plantmg street trees around the penmeter ofthe
site The plan proposes 6' wide curbside sidewalks and street trees with the reqUired setback
landscapmg to prOVide a umform and cohesive street edge Landscape plans for mdlvldual
developments would be reviewed With the site plans The type and placement of street trees IS
gUided by SDC 32 050
Fzndzngs
10 The CDP does not completely dISCUSS thIS Issue because no mentIOn IS made of the
regulatIOns for development zn the Springfield Development Code
11 The CDP subdIvIsIOn plan IS not acceptable as proposed
CondItIOns
22 Any development of the property IS reqUIred to comply wIth all sectIOns of SDC ArtIcle 21,
zncludlng permItted uses, landscapmg and deSIgn
23 Redraw the plan shOWing the followmg changes
a MmmlUm development areas of at least 5 acres,
b The proposed street followzng the zonmg boundaries between CI and MDR,
c The proposed street lznmg up WIth V Street,
d The proposed street names as V (east/west) and 271h (north/south),
e One accessjrom 31" Street as shown on the Conceptual Local Street Map
24 All but one approved curb cut for access on 31" Street shall be closed
25 Any development of the sIte WIll necessItate dedIcatIon and constructIOn of the new collector
street to prOVIde publlc Injrastructure for the CI sIte and the MDR property
26 The deSIgn of the zntersectlOns of the proposed street wlIh 31" Street and WIth Marcola Road
shall be m accordance WIth the CIty '.I' Collector Street Standards
27 Full street Improvements along Marcola Road and 31" Street are reqUIred
6 PreservatIOn of nver access for all properties wlthm CI sites that abut the McKenZie Rlver or the
WIllamette Rlver Greenway
Flndzng 12 The Item does not apply to the subject sIte because It does not abut the McKenZie
RIver or Wlllamette R,ver Greenway
CONCLUSION AND STAFF RECOMMENDATIONS
Based on the precedmg mformatlOn, It IS the conclUSIOn ofthls staff report that the proposed request
forms the baSIS for a Conceptual Development Plan With the addltJon of the mformatlOn proVided m the
staff report, the proposal IS consistent With SDC 21030, Conceptual Development Plan Staff
recommends APPROVAL With condltJons of thiS Conceptual Development Plan
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Jo No 98-02-47
RECOMMENDED CONDITIONS OF APPROVAL
I IncorporatIOn ofthe staff report as part of the CDP
2 Anv apphcatlOn for future development will reqUire a comprehensive analysIs of the wetland as
an amenIty for the CDP The analYSIS shall be submitted With the apphcatlOn An apphcatlOn will
not be accepted Without a comprehensive wetland analYSIS for the entJre site The analYSIS shall
conSIder wetland functIOns and values, storm water management and water quahty and open
space
3 The DIvISion of State Lands and the Army Corps of Engmeers must approve any changes to the
wetlands
4 A Comprehensive Traffic Impact Study (TIS) Will be required to be submitted With the first
development apphcatlOn for any or all of the CDP area The TIS IS reqUired to be submitted pnor
to acceptance of any apphcatlOn
5 The proposed collector street nght-of-way must be dedicated and Improved as a pubhc street
whenever any development occurs on the site
6 AddltJonal nght-of-way dedlcatJon at the northeasterly corner of the site and about 10 feet Wide
must be dedicated to complete the rrnprovement of 31" Street
7 AddItIOnal nght-of-way may be reqUired to proVide for traffic circulatIOn needs of speCific land
use proposals
8 Improvement Agreements may be reqUired for future street Improvements With development of
any portIOn of the site
9 The proposed collector street shall be used as an access for thiS site and the resldentJally zoned
property on the north and east of the site as shown on the Conceptual Local Street Map
10 Full street and utJhty rrnprovements Will be reqUired for each proposed street extensIOn and any
unImproved nght-of-way abuttmg the site whenever development occurs
II CirculatIOn needs on local streets wlthm the site Will be reviewed when development plans are
submitted to the City
12 The proposed street IS to be constructed as a collector street
13 One access pomt only Will be permItted from 31,t Street as shown on the Conceptual Local Street
Map
14 A complete draInage plan, mcludmg the eXlstmg and proposed gradmg and dramage systems,
Impacts on adjOInIng properties, and complete hydrologiC and hydranhc calculatIOns, are
reqUired to be submitted With any development apphcatlOn An apphcatlOn Will not be accepted
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Jo No 98-02-47
as complete Without a complete dramage plan It must be approved by the City Engmeer pnor to
Fmal Plat approval, Fmal Site Plan approval, or bUlldmg permit Issuance for any development on
the site
15 A comprehensive plan for Storm Water Quahty IS reqUired with any future development
proposals for the entire site mcorporatmg blOswales, ponds, natural amenItIes or other faclhtIes
approved by the City Engmeer A development apphcatlOn shall not be considered complete
Without thiS comprehensive plan
16 All electrical service IS reqUired to be underground
17 Seven-foot Wide Pubhc Utlhty Easements (PUE's) are reqUired along all lot frontages along a
pubhc street
18 Seven foot Wide PUE's wIll be reqUired along all property hnes
19 Whenever development occurs on the Site, an easement wIll need to be reserved for the sanItary
sewer trunk lme
20 Addllional pubhc easements may be reqUired for pubhc sanItary, storm and ulihty systems
dependmg upon how service IS provIded to each development site
21 Jomt access and mamtenance easements and agreements Will be reqUired to prOVide access to
lots WIth shared use dnveways
22 Pnvate easements may be reqUired for mgress, egress, sanitary, storm, and ulihty systems
dependmg upon how service IS provided to each development site
23 Any development of the property IS reqUired to comply With all seclions of SDC Article 21,
lllcludmg permItted uses, landscapmg and deSign
24 Redraw the plan showmg the followmg changes
a Mmlmum development areas of at least 5 acres,
b The proposed street followmg the zonmg boundanes between CI and MDR,
c The proposed street hnmg up With V Street,
d The proposed street names as V (east/west) and 27th (north/south),
e One access from 31" Street as shown on the Conceptual Local Street Map
25 All but one approved curb cut for access on 3]" Street shall be closed
26 Any development of the site Will necessitate dedICatIOn and constructIOn of the new collector
street to prOVide pubhc mfrastructure for the CI site and the MDR property
27 The deSign of the mtersectlOns of the proposed street With 31" Street and With Marcola Road
shall be m accordance With the City'S Collector Street Standards
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Jo No 98-02-47
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28 Full street Improvements along Marcola Road and 31" Street are reqUired
ATTACHMENT 2
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BEFORE THE PLANNING COMMISSION
OF THE
CITY OF SPRINGFIELD, OREGON
REQUEST FOR APPROVAL OF A +
CONCEPTUAL DEVELOPMENT PLAN +
HN CAMPUS INDUSTRIAL DISTRICT +
JO. NO. 98-02-47
FINDINGS, CONCLUSIONS,
AND FINAL ORDER
NATURE OF THE APPLICATION
THE REQUEST FOR CONCEPTUAL DEVELOPMENT PLAN APPROVAL FOR A SITE IN A CAMPUS
INDUSTRIAL DISTRICT, TAX LOT 1800, ASSESSOR'S MAP 17-02-30
~ELEV ANT FACTS. CRITERIA AND FINDINGS
1. On April 1, 1998, the follOWIng applIcatIOn was accepted
ApplIcant - The Plel Le Trust, JOUl nal Number 98-02-47.
2. The apphcatlOn was submitted m accordance WIth Arlicle 3 ofthe Sprmgfield Development Code. TImely and
snfficlent nolice of the publIc hearmg, pursuant to SectIOn 14 030 ofthe Sprmgfield Development Code, has
been prOVIded
3. On June 16, 1998, a pubhc hearmg on the I equest for Conceptual Development Plan approval for a Campus
Industrial sIte was held. The Development ServIces Department staff notes, staff report and recommendatIOn
together wIth the teslimony and submittals of the persons testJfymg at that hearmg have been conSIdered and
are part of the record of thiS proceedmg
CONCLUSION
On the basiS of thIS record, the request for approval of a Conceptual Development Plan IS consistent WIth the
criteria of Seclion 21.030 of the Sprmgfield Development Code. ThiS general findmg IS supported by the speCIfic
l'indmgs of fact and conclUSIOns, m the attached staff report (Attachment 1) and attached hereto ThiS applIcatIOn
IS APPROVED WIth cond,tJons.
ORDER
It IS ORDERED by the Plannmg CommISSIOn of Springfield that Journal Number 98-02-47, Conceptual
Development Plan approval, be APPROVED WIth condItIOns.
ThIS ORDER was presented to and approvcd by the Planmng CommISSIOn on June 16, 1998
Planmng CommISSIOn Chairperson
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ATTEST
AYES.
NOES:
ABSENT.
ABSTAIN.
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. ATTACHMENT 3
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II
"?,.,lllt A CONCEPTUAL DEVELOPMENT PLAN
4'..,.
FOR
-. THE PIERCE PROPERTY
SPRlNGmELD,OREGON
.
.
~ FEBRUARY 1998
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., ,~ DAVID J PEDERSEN & ASSOC1ATES, INC
1'!1 POBOX 10543
EUGENE, OR 97440
=- 541/687-2457
,
I f
CI
A CONCEPTUAL DEVELOPMENT PLAN
FOR
THE PIERCE PROPERTY
SPRINGFIELD, OREGON
I BACKGROUND
The Pierce property consists of approxunately 56 acres of land located north of
Marcola Road between 31 st Street and approxunately 25th Street m the regIOn generally known
as North Spnngfield The entITe sile IS zoned Campus Industnal (CI) and IS governed by the
provIsIOns of Article 21 of the Spnngfield Development Code The prunary requIremenl of
the code IS the need to have an approved Conceptual Development Plan adopted by the City of
Sprmgfield pnor to the actual development of the site Followmg approval of the Conceptual
Development plan speCific development proposals and uses must also be reviewed and
approved under the City's Site Plan Review procedures before they can go forward
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Tills proposed Conceptual Development plan IS subrmtted to comply with the
requITements of the code by the long -tune owner of the property, Al Pierce who IS a trustee of
the Pierce Trusts The extent of actual participatIOn of the trusts m the development of the
property remams unclear at tills tune Therefore tills plan proposal assumes a subsequent
developer or developers wlllunplement the plan provIsIons
II ZONING mSTORY
The subject property and approxunately 70 additIOnal acres sUIToundmg the site willch
also were m the Pierce Trust ownersillp were deSignated ill the 1982 versIOn of the
Metropolitan Area Plan as havmg reSIdential, commercial and mdustnal components A
precise zornng plan, willch descnbes portiOns of the property zoned for smgle-famlly,
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multiple-family, commercial, light-medIUm mdustnal and campus mdustnal 'and a legal
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descnptlOn for each portion was prepared and adopted as Spnngfield Ordmance No 5160 m
1983
There were several features of tills zorung plan which were unportant to development
of tills portIOn of Sprmgfield FITst, there was a reqUirement to dedicate land for a park on the
north margm of the property, north of the bike path adjacent to the adJommg school
Approxunately 8 acres were dedicated m 1993 Second, the 1983 zorung plan envlSloned the
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creation of a new roadway to smooth the transItIOn between 28th and 31st Streets The Trust
dedicated the nght-of-way for thIS roadway and It was constructed several years ago Fmally,
the zorung plan envlSloned a new roadway runmng west from 31st Street m the VIC1illty of "V"
Street for approxunately 1900 feet and then turnmg south to connect wIth Marcola Road ThiS
new roadway was to be a local street and serve as the zorung boundary between the Campus
Industnal and the MedIUm DenSity ResIdential portion of the property ThiS proposed new
road has not been constructed nor has the MedIUm DensIty reSIdential area been developed
Tills means the western and northern boundary of thiS proposed Conceptual Development Plan
IS an un-constructed roadway and an undeveloped medIUm densIty reSIdential area
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There was another senes of changes to the ongmal zorung plan willch was approved by
the City m1995 These changes served to correct long-standmg conflicts between the zorung
plan and the 1987 verSIOn of the Metro Plan At tills tIme the Metro Plan was also amended to
add approxunately 5 acres of commerCial land and m subsequent actIOns all the land east of
the 28th-31st connector was zoned Light-MedIUm IndustrIal
III. NEIGHBORHOOD CONTEXT
The subject property IS Situated m the Ill1dst of a developed neIghborhood as opposed to
a Suburban location on the fnnge of the CIty There are established smgle-faIll1ly
neIghborhoods located to the north, to the northwest, and to the east of 31 st Street on the east
Side of the sIte
There IS a commercIal development With a grocery and a vanety store located at 19th
and Marcola Road, just west of the property
There IS an eXlstmg mdustnal use located north of Marcola Road and east of 28th
There IS also a large heavy mdustnal use located near the southeast corner of 28th and Marcola
Road (Kmgsford Charcoal) The eXlstmg Kmgsford plant exerts a negative mfluence on the
property, particularly the southeast corner, due to ItS sIZe and the nature of the mdustnal
process used to manufacture charcoal bnquets The negative aspects of the adjo1illng
mdustnal uses are partially offset by the view of the mountams to the east and the Coburg
Hills to the north
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IV SITE CONSTRAINTS
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Development of the property IS constramed by the eXistence of two man-made features
located on the property These constramts are highlighted as they lumt the development
optIOns available and strongly suggest the scenano for thiS Conceptual Development Plan
The first lumtmg feature IS an eXIstmg ditch which crosses the property east to west
shghtly north of the llllddle of the property ThiS ditch IS approxlffiately 15 feet Wide and 12
feet deep Hlstoncally, the ditch was constructed to carry rrngatlOn water from the McKenZie
River to farm lands which were located near the Coburg Road area of Eugene It no longer
serves as an IrngatlOn ditch as the water nghts have not been c1alffied m some tlffie Its ongm
IS at a slough of the McKenzie River located near the east end of "V" Street After leavmg the
Pierce property the ditch turns south and crosses Marcola Road where It eventually discharges
mto the "Q" Street channel, which m turn empties rnto the WIllamette River The ditch
carries water year around and may serve some role rn the City's storm dramage system
Presumably the ditch must remam functIOnal The ditch IS a constralllt because ItS depth and
Width make It difficult to cross by roads or paths, essentially dlVldrng the property and Its
locatIOn mto a north half and a larger south half
The second major constramt on the site IS the eXistence of a major sarutary sewer trunk
lme which runs east-west approxlffiately 400 feet south of and parallel to the ditch and 450 feet
north of and parallel to Marcola Road This sewer Ime IS relatively permanent rn Its location
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because ItS size of 42 mches and depth of approxlffiately 12 feet makes It very expensive to
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move (See attached letter from Tom Poage Engmeerrng regardmg the cost of movmg the
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sewer lrne) Because no structures can be constructed on the easement for the sewer Ime, the
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eXistence of the Ime IS a major constramt to development of the site and placement of
bmldmgs
There are virtually no other constrarnts to the development of thiS site Because It has
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been farmed, there IS no slgruficant vegetatIOn It IS flat, With dramage trendmg to the north
toward the McKenzie River SOils on the property mc1ude the Salem (l18)! Malabon (75), ,
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and Oxley Senes (100) as mapped by the Lane County SOils Survey These SOils present no
major stablhty problems for construction
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V EXISTING ACCESS AND CIRCULATION
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In large part because the sIte IS located wlthm a developed portIon of the City mstead of
near the frmge, there IS a rather well developed senes of artenal roadways and mterchanges
WIth freeways Marcola Road, which IS an east-west artenal m Sprmgfield, serves as the
pnmary means of acceSS to the site Access to downtown Spnngfield IS easy vIa Mohawk,
14"' and Mam Street
Interstate 105 IS less than 1/4 mIle south and IS accessIble via mterchanges west at 19"'
and east at 42nd Interstate 5 IS located several rrules west VIa Interstate 105 and downtown
Eugene IS easIly accessIble Vta a contmuatlOn of Interstate 105 Access to the sIte from
elsewhere m the metropolItan regIOn or from the Interstate 5 COrrIdor IS sllllple and relatIvely
drrect
Access around the perlllleter of the site, as prevIously mentIOned, COnsIStS of Marcola
Road, the 28"' - 31" Street transitIon and 31" Street and a proposed new local street winch wlll
connect 31" Street With Marcola Road Of partIcular note IS the locatIOn of a major
underground water transrrusslOn Ime north of thiS site The nght -of-way of tins transrrussIOn
lrne has been paved and serves as a bicycle and pedestnan pathway which can serve to connect
thiS area With portIOns of the City further to the west
VI. EXISTING PUBLIC FACILITIES AND SERVICES
Agam, the locatIOn of tins site wItlnn the CIty IS fortunate m that the eXIstmg
mfrastructure IS m place, as descnbed below
Storm Sewer The eXlstrng faCIlItIes for provIdmg storm dramage COnsiSt of a storm
sewer located at Marcola Road west of 28"' Street and the eXlstmg dramage dItch crossmg the
property from east to west at about the center of the sIte Larger scale developments may have
to engrneer storm water pre-treatment on the sIte before dIscharge to one of the eXIstmg
faCIlItIes, partIcularly If there are large area of llllpervlOus surfaces such as roofs or parkrng
lots One sIte deSign alternative IS to use the relatIvely large requrred front setback area for
constructIOn of grassy swales to detam and pre-treat storm water runoff
Samtarv Sewer
The eXIstmg sarutary sewer system wltlnn and around the sIte
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consists of 8 mch and 42 mch gravity lines There IS also a pump statIOn I~cated on 31" Street
Just north of "V" Street wIth approxunately 450 feet of force mam As has prevIOusly been
descnbed, there IS a 42-mch gravIty Ime runrung across the property A new sewer lme may
have to be constructed m the new roadway north to serve the portions of the site north of the
dItch and the undeveloped medIUm densIty residential property adJommg thIs property
Water Water to the property IS provIded by the Rambow Water Dlstnct which
has water lInes from 8 mches to 18 mches surroundmg the sIte on two sides Two 12 mch
stubs to the property lme are located m Marcola Road, approximately 1000 feet apart to serve
the sIte
Electncltv Electncal servIce to the Pierce site IS provIded by the'Sprmgfield
Utility Board (SUB) and It COnsiStS of prunary servIce lmes whIch border the property on three
sides
Natural Gas Natural gas to the site eXIsts m the form of a 4-mch plpelme located
along the southern edge of the sIte boundary ExtensIOns mto the sIte as well as future
( extensIOns along the new roadway Will be engmeered and provIded based on demand
VII A DEVELOPMENT SCENARIO
The Pierce Campus Industrial sIte IS one of only two Campus Industrially zoned sites m
the City of Spnngfield The other, much larger sIte IS the McKenzie Gateway; area located on
the north edge of the City near the McKenzie RIver and Interstate 5 Tills sIte,1 willch IS home
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to Sony DIsk Manufacturmg and several other related busmesses, enJoys a high degree of
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visual attractiveness, few If any constramts to development, and street and utIhty
nnprovements tailored to the specific needs of the dlstnct
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The PIerce site on the other hand contaIns several development constraints and IS
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nnpacted by the nearby locatIOn of heavy mdustry These factors as well as the fact the Pierce
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Campus Industnal sIte has been exposed to the market for nearly 15 years Without a sale,
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suggests a new approach to the planrung and development for the site needs to Occur
The new approach suggested by tills proposed Conceptual Development Plan IS one of
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strIVIng to achieve more modest objectIves Instead of propOSIng to maIntaIn large sites for
large scale IndustrIal users tlus site seems better sUited to provldmg opporturntIes for small and
medIUm-scale light IndustrIal uses (See attached letter of oplrnon from Sue PrIchard
regardmg parcel size)
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The need to create a pleasIng and attractIve settIng for the small and medIUm-scale
IndustrIal user becomes a greater challenge when the vlclrnty lacks the Visual amerntIes found
at the McKenzie-Gateway site Nonetheless, the entire 56 acre site can become an attractive
settIng by creatmg a urnform and coheSive street edge by use of street trees and landscaplllg In
the reqUired bUildIng setbacks
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VIII.
THE CONCEPTUAL DEVELOPMENT PLAN
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The Conceptual Development Plan proposed hereIn Involves as Its central theme the
creatIOn of up to 11 lots rangIng In sIZe from 2 5 acres to 8 1 acres These are the lots that are
proposed to be IrntIally created but multIple lots could be assembled should a user requITe a
larger lot area Access to the lots shall be from the perImeter streets which now or are
proposed to surround the site Tandem drIveways servlllg more than one lot, are proposed for
locatIOns on Marcola Road, on the 28th-31st connector and on 31" as shown on the attached
plan map DrIveway access for the lots frontIng on the proposed Pierce Street are not shown
on the map but Will be deterrruned specifically at the tlIlle of site plan review for each
development proposal
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In order to urnfy the development of this Campus Industrial DiStrict, and to soften the
exterIor edge, street trees Will be planted as represented on the plan Street trees are now
planted along the new 28th - 31" connector and are proposed to be contInued around the
perImeter of the site
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Sidewalks are also proposed and are now Installed along the new section of roadway
They are constructed setback from the curb lIne With an undeveloped plantIng strIp 4 feet
Wide Along Marcola Road, the Sidewalks Will have to be adjoInmg the curb as the mstalled
street light standards would COnflict With setback Sidewalks The curbSide Sidewalks are
proposed to be 6 feet Wide With the street tree plantlllg area located adjacent to the Sidewalk
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We are propOSlllg the same sidewalk standard - 6 feet wide and curbsIde - for the street
frontage of the new street proposed to serve the northern and western sIdes of the property It
IS believed that the wider than normal curb sIdewalk With adjacent street trees and landscaplllg
will present a wider more attractive streets cape
The development IS likely to be constructed to two or more phases The first phase IS
likely to lllvolve creatIOn of the lots frontmg on Marcola Road and the 28th - 31 st connector
At that tIme, a street tree plan would be prepared and submitted along with the subdivIsIOn
plan to the City for approval InstallatIon of the trees would occur as a part of the public
lIllprovements reqUIred for the subdivIsIOn Sidewalks would be lllstalled at the tlIlle of
bUIldlllg development on the lot
The Campus IndustrIal DistrIct also requITes a 50 foot planted setback area when the
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distrIct adjOlllS a residentIal district and a 20 foot setback when adjOmlllg all other districts
These distances are shown on the plan diagram Individual developments will need to develop
a landscape plan to be reviewed at the site review stage
( As a [mal note, the Pierce campus Industrial sHe can provide the location for a varIety
of light mdustrlal users who desrre an attractive settlllg and who can benefit from a central
locatIOn close to eXlstmg arterIals and the Interstate freeway system
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COMMERCIAL REAL ESnn
February 7, 1998
David J Pedersen & Associates, lnc
990 Oble Street
POBox 10543
Eugene, OR 97440
Dear Dave,
The purpose of this letter IS to glVe you my perspeclive on the demand for Industnal parcels
In the Eugene-Spnngfield area
As the economy prospered, and demand for Industnal space lllcreased substanl1a1ly over
the past three or four years, several trends emerged.
. local companies were growmg and needed larger quarters
. groWing companIes were not content WIth older, obsolete facl11l1es and In
many cases elected to build and own their own facilll1es
. eXlSl1ng parcels of 1/2 to 3 acres were rapIdly absorbed and many, small
Industnal "parks" were created out of larger parcels (Hyw 99 at Airport
Road, Westec, Greenhill, etc )
. land pnces Increased substanl1a1ly
Dunng this tIme, we saw enormous demand for parcels from 1/2 to 5 acres The owners
of sites where large parcels were diVided mto smaller sItes expenenced bnsk sales and
more demand than they could meet In fact, demand for the smaller parcels was so mtense
that pnces went from $125 to $3 00 per square foot In only one to two years
Demand for parcels larger than 5 acres has been slgruficantly less, and for parcels over 10
acres, demand has been low SignIficantly larger parcels (20 or more acres) seem to appeal
to developers who want to dIvIde the property Into smaller acreages (1 to 3 acres) to sell for
prenuum pnces We expenence very lIttle Interest from either local comparues or
compames from out of the area who are Interested In larger pieces of land It appears that
the very large comparues tend to concentrate their Interest In the larger metropohtan areas
At tlus hme, the smgle most common request we hear for Illdustnalland IS for parcels
under 5 acres, III good local1ons with qUIck and easy freeway access
I hope I have adequately answered your queshons If you reqUIre addll1onalmformal1on,
please don't heSitate to phone
Sincerely,
d~~
Sue Pnchard
01 East Broadwa\
,ulte 101
ugene, OR 97..01
"EL (541) 3-15-4860
AX (541) 3..5-96..9
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POAGE ENGINELlUNG & SURVEYINu, me.
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CIY'lL/ \rui\IOPAL E"GI"EERI....C . SE'\ER & ''\0 .\.TER S'\STE\IS . SURVEYr;G
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February 5, 1998
Davld J Pedersen
David J Pedersen & Associates, Inc
POBox 10543
Eugene, OR 97440
Dear Dave
ThIS letter IS m regards to your request for a cost esttmate for the relocanon o~ an exlStmg 42 mch
sallltary sewer lrne that blsects the Pierce property m east Spnngfield My understandmg of your
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request IS to estImate the cost to move the sewer lme from ItS present locatlon south to a new
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locatlon along the nonh margm of Marcola Road I have prepared a prelimrnary sketch of thIS
proposed relocatIon and determmed an estlmate for the work. S mce the construcnon of such a large
SanItary sewer pipe IS not common m thiS area I was unsure of my cost proJeCtlon, so I contacted a
local constructIon company to provide me With a second esttmate to venfy my COSts These two cost
estImates were wlthrn 10 percent of each other The followmg costs are based on an average of the
two esttmates
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Relocation of sewer pipe
Construct four new manholes and
reconstruct one eXlStmg manhole
Reconnect live sewers (both ends)
$210,000
Sub-total
35,500
20.000
$265,500
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+ 15 % engmeermg
and 10% contingency
66 AOO
TOTAL
$331,900
This estImate IS based on usrng native backfill wlthm the sewer trench which will requITe that the
sewer be outside any street area Should the lme be constructed wlthm a proposed right of-way or
eXIstmg rIght-of-way (Marcola Road), there would be an addItIonal cost of $77,000 for select
backfill materIal
Should you need any addmonalmformatlon, please feel free to call
SmjyIy, ./ /}
(~ ,#ttWvMJ -X ~~
, Thomas F Poage
(2450L02 wp)
,
POBOX 2527' EUGENE, OR 97-102' 990 OBlE STREET' (5-11) -185 - -1505' FA.X (5-11) -185 - 5624
50 EXTERIOR BOUNDARY
SETBACK ABUTTING
AESIDENTIAl ZONE
PIE-RCE-ORNE-
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30 EXTERIOR
BOUNDARY SETBACK
ADJACENT TO
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INDUSTRIAL
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Iii ACCESS POINTS
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50 EXTERIOR BOUNDARY
SETBACK ABUTTING
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NORTH
CONCEPTUAL DEVELOPMENT PLAN
PIERCE PROPERTY
CAMPUS INDUSTRIAL PARK
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SPRINGFlEiI D OREGON
o 100 200 400
1\.....0 I
FEBRUARY 1998
, .
Spnngfield, Or
May 16, 2007
Mayor Lelken
Members of the Spnngfield City Council
Councilors,
This IS In response to your request regarding the proposed development of the area
called "the Pierce Property" This property was bound to be developed at some pOint In
time so I have no problem with that There are, however, some things that give me cause for
concern These Include, .
1) Four hundred plus housing Units on this size of area Consldenng the amount of area
taken out because of "wet land" and other reasons, this seem to be more than
"medium density" housing With lot sIZes running about 4500 sq flthat IS qUite
crowded My lot sIZe IS about 8000 sq It and I don't have much yard space
2) I resent people coming here from Nevada! CalIfornia and bnnglng their problems
and ways of dOing bUSiness to a healthy, respectable neighborhood
3) The placement of a solid stnng of three story apartments directly across the street
From my front door IS disturbing to me Parbcularly when there IS a better locat-
Ion for these bUildings where they would not block eXisting homes to such a large
deg ree
4) ThiS project IS gOing to cost us a lot of money The proposal they gave us several
years ago was Just over $10,000 At the end of twenty years, If we chose to use the
payment plan, add 60% to that As 31" St Is a collector street the locals should not
be required stand the full cost of rebUilding the street
,
Thank you for giving our concern your consideration
'~~~cf~
235931"St IJ-~ ~dJ
Spnngfield, Or 97477
Robert Lind
DaiSY Lind
RECEIVED
MAY 1 7 2007
CITY OF SPRItI'GFIELO
CITY RECORDER