HomeMy WebLinkAbout2017 06 06 AIS for Metro Plan Amendment and Zone ChangeAGENDA ITEM SUMMARY Meeting Date: 6/6/2017
Meeting Type: Regular Meeting
Staff Contact/Dept.: Andy Limbird, DPW
Staff Phone No: 541-726-3784
Estimated Time: 30 Minutes
S P R I N G F I E L D
PLANNING COMMISSION
Council Goals: Encourage Economic Development and
Revitalization through Community
Partnerships
ITEM TITLE: REQUEST FOR METRO PLAN DIAGRAM AMENDMENT AND ZONE CHANGE FOR
ABOUT 421 ACRES OF PROPERTY IN THE SOUTHEAST THURSTON HILLS, CASES
TYP417-00001 AND TYP317-00003
ACTION
REQUESTED:
Conduct a joint work session and joint public hearing with the Lane County Planning Commission,
and forward a recommendation to the City Council and Board of County Commissioners regarding
a proposal to amend the adopted Metro Plan diagram and Springfield Zoning Map.
ISSUE
STATEMENT:
The applicant has submitted concurrent Metro Plan diagram and Zoning Map amendment
applications for six contiguous, vacant, wooded parcels in southeast Springfield that comprise the
planned Thurston Hills Natural Area Park. The proposed amendment would change the
comprehensive plan designation and zoning for the property from Low Density Residential (LDR)
and Light Medium Industrial (LMI) to Public Land and Open Space (PLO). Approximately 215
acres of the property proposed for redesignation and rezoning is outside the Springfield City limits
and Urban Growth Boundary and therefore requires approval by Lane County.
ATTACHMENTS: 1. Staff Report for Metro Plan Amendment
2. Staff Report for Zoning Map Amendment
3. Application and Exhibits – Metro Plan Amendment & Zone Change
4. Public Comment Received During Notification Period
5. PC Order & Recommendation – Metro Plan Amendment Application TYP417-00001
6. PC Order & Recommendation – Zoning Map Amendment Application TYP317-00003
7. MOU for Extension of Jessica Drive
8. Springfield Landslide Hazard Areas Map
DISCUSSION:
The subject site is comprised of ten contiguous parcels located on the south side of McKenzie
Highway and extending to the south and southwest to the Weyerhaeuser haul road. One property
with frontage on McKenzie Highway has an existing residential dwelling that is addressed as 7575
McKenzie Highway; the remaining parcels are vacant and not addressed. The subject properties
that are inside the city limits are identified as Assessor’s Map 17-02-35-00, Tax Lots 3500, 3602
& 3604; Map 18-02-02-00, Tax Lots 100, 400 & 401; Map 18-02-03-00, Tax Lots 600 & 602; Map
18-02-09-00, Tax Lot 100; and Map 18-02-10-00, Tax Lot 100). The properties are zoned and
designated for low density residential development in accordance with the adopted Metro Plan
diagram and the Springfield Zoning Map. The subject site is bordered by low density residential
zoning and existing residential development to the north, east, west and southwest, and Lane
County Forest and Impacted Forest zoning to the south and southeast.
The subject property is identified for dedication and development as the Thurston Hills Natural
Area Park in the adopted Willamalane Comprehensive Plan, which has been co-adopted by the
City of Springfield as a refinement plan of the Metro Plan.
The Planning Commission is requested to conduct a joint work session with the Lane County
Planning Commission, and subsequently hold a joint public hearing with the Lane County Planning
Commission on the proposal to amend the Metro Plan diagram and Zoning Map. The Springfield
and Lane County Planning Commissions are requested to use this opportunity to review all
materials submitted into the record, conduct deliberations, and forward separate recommendations
to the Springfield City Council and the Lane County Board of Commissioners. The joint public
hearing before the Springfield City Council and Lane County Board of Commissioners is
scheduled for September 18, 2017.
Staff Report and Findings
Springfield Planning Commission
Type I Amendment to the Metro Plan Diagram
Hearing Date: June 6, 2017
Case Number: TYP417-00001
Applicant: Eric Wold, Willamalane Park & Recreation District
Project Location: Ten contiguous tax lots located generally south of McKenzie Highway, south and
east of South 69th Street, and east of the Weyerhaeuser haul road.
Request
Applicant’s Project Narrative: “Willamalane Park and Recreation District (WPRD), the ‘applicant’,
requests Metro Plan Amendment and Zoning Map Amendment application approval to change the plan
and zone designations of the properties that comprise Thurston Hills Natural Area (THNA) Park from
Low Density Residential to Parks and Open Space. In 2013, the City of Springfield adopted the 2012
Willamalane Parks and Recreation Comprehensive Plan, which identifies future needs for parks, natural
areas, recreation facilities, programs, and services. The Plan includes specific actions directed toward
addressing future needs and ensuring the most effective use of community resources. One such specific
action included in the Plan is the acquisition and development [of] a natural area park in the Thurston
Hills area. This application is a request for Metro Plan Amendment and Zoning Map Amendment
approval.”
The City has received an application for a Type I Metro Plan diagram amendment and a Zoning Map
amendment from Willamalane Park & Recreation District (Attachment 3). The proposed Metro Plan
diagram amendment would change the plan designation for about 421 acres within the Springfield Urban
Growth Boundary (UGB) from Low Density Residential (LDR) to Parks and Open Space. A concurrent
amendment to the Springfield Zoning Map would change the zoning of the property from LDR and Light
Medium Industrial (LMI) to Public Land and Open Space (PLO).
About 245 acres of property that is owned by Willamalane Park & Recreation District falls outside the
Springfield UGB, and therefore is in Lane County jurisdiction. For the affected areas outside the
Springfield UGB, the proposal would retain the Metro Plan designation of Forest Land and current
zoning of Non-Impacted Forest (F-1) and Impacted Forest (F-2).
In accordance with Springfield Development Code (SDC) Section 5.14-125.A, an amendment to the
Metro Plan diagram can be initiated by a property owner or public agency at any time. The applicant
executed a Memorandum of Understanding (MOU) with the City in 2016 for development of the
Thurston Hills Natural Area Park, which includes provisions for initiating the comprehensive plan
amendment and zone change. The application was submitted on January 27, 2017 and the joint
Springfield and Lane County Planning Commissions public hearing on the proposed Metro Plan diagram
amendment is scheduled for June 6, 2017. The application is scheduled for a public hearing before the
joint Springfield City Council and Lane County Board of Commissioners on September 18, 2017.
Overview of Proposed Metro Plan Diagram Amendment
The adopted Metro Plan diagram designates the subject property for Low Density Residential land use.
Consistent with the adopted Willamalane Comprehensive Plan (2012), the applicant is proposing to
Attachment 1, Page 1 of 20
conserve the 666+ acre area for environmental stewardship and education, woodland habitat preservation,
and public recreational opportunities. The current residential zoning and comprehensive plan designation
for the property does not accommodate the proposed use as a large natural area park. To facilitate project
approval, Willamalane has initiated a Metro Plan diagram amendment and concurrent Zoning Map
amendment to change the zoning and plan designation from LDR and LMI to PLO.
In accordance with SDC 5.14-115.A.1, proposals for redesignating land inside the City limits are
classified as a Type I Metro Plan diagram amendment requiring approval by Springfield only. In
accordance with SDC 5.14-130, the property owner/public agency initiated amendment to the Metro Plan
diagram is processed as a Type IV (legislative) land use action that requires public hearings before the
Springfield Planning Commission and City Council. Because the property overlaps Lane County
jurisdiction, joint public hearings with the Lane County Planning Commission and Board of
Commissioners are being held for the subject Metro Plan diagram amendment and Zone Change request.
Notification and Written Comments
In accordance with the Oregon Administrative Rules (OARs) 660-018-0020, prior to adopting a change to
an acknowledged comprehensive plan or land use regulation, local governments are required to notify the
state Department of Land Conservation and Development (DLCD) at least 35 days prior to the first
evidentiary hearing. A Notice of Proposed Amendment was transmitted to the DLCD on April 28, 2017,
which is 39 days prior to the joint Springfield and Lane County Planning Commission public hearing on the
matter.
In accordance with SDC 5.2-110.B, Type IV legislative land use decisions require notice in a newspaper of
general circulation. Notification of the June 6, 2017 joint Planning Commission public hearing was
published in the legal notices section of The Register Guard on May 16 and 23, 2017. The City also
provided written notification to property owners and residents within 300 feet of the outer perimeter of the
property on May 16, 2017. As a result of the public notification, staff received two telephone calls and one
written comment was received from Dave and Kelly Moore, 7291 Holly Street, Springfield, 97478: “We
live at 7291 Holly Street and our property backs directly up to the project site. Although we appreciate how
the land is being used, we have concerns about the proximity of the trails to our house. Do you have any
insight on where the trails will be, and if so do you expect our home to be visible from the trails?”
Staff Response: Staff referenced the conceptual trail layout plan provided by Willamalane for the project
area. While not a final design or as-built alignment for the planned trail system, it does provide a general
idea of the proximity of trails to existing homes to the west and northwest. The general location of the
primary “spine” trail that will pass to the east and south of homes on Holly Street is already known because
it is based on an existing timber access road. Based on this information and available air photo imagery,
staff estimates that the main trail system will be at least 400 feet from the respondents’ property. However,
as the trail system develops there may be tributary connections from residential neighborhoods to the west
and northwest of the Thurston Hills Natural Area Park. With the density of existing tree cover and planned
trail alignments located internal to the Willamalane property, it is unlikely that the trail system and its users
would be conspicuously visible or overheard from perimeter residential homes. Staff also notes that the
natural area trail system will be subject to further land use approvals thereby allowing interested residents
and property owners an opportunity to review the planned trail network and its proximity to nearby streets
and residential areas.
Background
Applicant’s Project Narrative: “In 2014, Willamalane acquired 665 acres of property in the Thurston
Hills area for the natural area park. Approximately 420 acres of the total acreage is within Springfield’s
Urban Growth Boundary but outside the existing City limits. The District is also in discussions with
Attachment 1, Page 2 of 20
landowners to acquire more property along the ridgeline. These land investments will enable
Willamalane to preserve views, wildlife habitat and sensitive natural areas; and provide walking, hiking
and mountain biking opportunities. Willamalane has been making progress toward the realization of
THNA Park through multiple initiatives:
Both the 2004 and 2012 Willamalane Comprehensive Plans include strategies to acquire and
develop property for a natural area park and trails in the Thurston Hills areas.
In 2012, Springfield voters approved a Willamalane capital bond package, which included funds
identified for acquisition and improvements of a natural area park in the Thurston Hills area.
In 2016, Willamalane and the City executed a Memorandum of Understanding (MOU)
regarding the development of THNA Park.
In 2012, Springfield-area voters approved Measure 20-199, a $20 million Willamalane Park and
Recreation District Bond to fund projects aimed at expanding trails and preserving parkland around
hillsides, rivers and streams. The bond measure included funding for the THNA project and represents
public support for acquisition and development of THNA Park.”
Criteria of Approval
Section 5.14-135 of the SDC contains the criteria of approval for the decision maker to utilize during review
of Metro Plan diagram amendments. The Criteria of approval are:
SDC 5.14-135 CRITERIA
A Metro Plan amendment may be approved only if the Springfield City Council and other applicable
governing body or bodies find that the proposal conforms to the following criteria:
A. The amendment shall be consistent with applicable Statewide Planning Goals; and
B. Plan inconsistency:
1. In those cases where the Metro Plan applies, adoption of the amendment shall not make the
Metro Plan internally inconsistent.
2. In cases where Springfield Comprehensive Plan applies, the amendment shall be consistent
with the Springfield Comprehensive Plan.
A. Consistency with Applicable State-Wide Planning Goals
Finding 1: Of the 19 statewide goals, 13 should be considered in general terms as “urban” goals,
that is, these goals will be applicable for purposes of review to any plan map amendments in the
city; however, it is the proposal and its effect on the purpose of these goals that will determine
whether or not the proposed amendment is “consistent with” the applicable goals. The goals that are
to be evaluated are: Goal 1 – Citizen Involvement; Goal 2 – Land Use Planning; Goal 5 – Natural
Resources, Scenic and Historic Areas, and Open Spaces; Goal 6 – Air, Water and Land Resources
Quality; Goal 7 – Areas Subject to Natural Hazards; Goal 8 – Recreational Needs; Goal 9 –
Economic Development; Goal 10 – Housing; Goal 11 – Public Facilities and Services; Goal 12 –
Transportation; Goal 13 – Energy Conservation; Goal 14 – Urbanization; and Goal 15 – Willamette
River Greenway. All of the statewide goals are listed below; the narrative that accompanies each is
more expositive when the discussion applies to the 13 goals identified above.
Attachment 1, Page 3 of 20
Goal 1 – Citizen Involvement
Applicant’s Narrative: “Goal 1 addresses the need to develop a citizen involvement program to
ensure citizen involvement in all phases of the land use planning process. The development of
THNA Park has been fueled by citizen involvement since project inception. The Willamalane Park
and Recreation Comprehensive Plan was updated in 2012, using community surveys, public
involvement, and outreach activities to conduct the Community Needs Assessment. Feedback
collected from over 2,000 district stakeholders and residents included their needs and preferences
related to natural areas, recreation facilities and programs over the next 20 years. This feedback
spurred the inclusion of the development of THNA Park as a future area of improvement in the
Willamalane Park and Recreation Comprehensive Plan. In addition, in 2012 Springfield-area
voters approved Measure 20-199, a $20 million Willamalane Park and Recreation District Bond to
fund projects aimed at expanding trails for hiking, biking, and walking, and preserving natural
areas and parkland around hillsides, rivers and streams. The funds from this bond measure are
supporting the THNA project and represent public backing for the project’s development. The
Planning Commission of both Springfield and Lane County will meet jointly and will accept
testimony on the proposal. Through the procedures established by the city, citizens receive notice of
hearings in a generally published local paper and have the opportunity to be heard regarding the
proposed amendments. Notice of the public hearing is provided in accordance with SDC
requirements to property owners within 300 feet of the proposed Zoning Map Amendment. Since the
proposal complies with the City’s citizen involvement program and citizens have opportunities to be
involved in the procedure, the proposal is consistent with Goal 1.”
Finding 2: Goal 1 – Citizen Involvement calls for “the opportunity for citizens to be involved in all
phases of the planning process”. The proposed amendment to the adopted Metro Plan diagram is
the subject of a legislative decision-making process with multiple public hearings before the City’s
Planning Commission and Council. Because the project area extends beyond the City’s UGB, the
Lane County Planning Commission and Board of Commissioners will be reviewing the proposal
jointly with Springfield. The Springfield and Lane County Planning Commissions are scheduled to
conduct a joint public hearing to consider the proposed amendment on June 6, 2017. The joint
Springfield and Lane County Planning Commissions public hearing was advertised in the legal
notices section of the Register-Guard on May 16 and 23, 2017. The recommendation of the
Springfield Planning Commission will be forwarded to the Springfield City Council for
consideration at a joint public hearing meeting with the Lane County Board of Commissioners
scheduled for September 18, 2017. Notification of the joint Planning Commission public hearing
was published in the Register-Guard newspaper at least two weeks prior to the meeting date. Staff
finds that the proposed Metro Plan diagram amendment is consistent with Goal 1 requirements.
Finding 3: Staff advises that a second round of public notification will be sent in August, 2017 for
the joint Springfield City Council and Lane County Board of Commissioners public hearing
meeting. Additionally, a public hearing notice for the joint City Council and Board of
Commissioners meeting will be published in the Register-Guard newspaper at least two weeks prior
to the September 18, 2017 meeting date.
Goal 2 – Land Use Planning
Applicant’s Narrative: “Goal 2 requires that local comprehensive plans be consistent with the
Goals, be internally consistent, and that implementing ordinances be consistent with acknowledged
comprehensive plans. Goal 2 also requires that land use decisions be coordinated with affected
jurisdictions and that they be supported by an adequate factual basis. As required in SDC Sections
Attachment 1, Page 4 of 20
4.5-B and 5.14-130, the City is required to give referral notice of the proposed Type II Metro Plan
diagram amendment to the City of Eugene and Lane County so they may determine if there are
grounds to participate as parties to the hearing. The City also sends the statutorily required notice
of the initial public hearing 45 days in advance to the state Department of Land Conservation and
Development, ensuring that they are given opportunity for comment and review in conformity to
applicable statewide planning goals. The Metro Plan and the SDC, as well as the Statewide
Planning Goals and applicable statutes, provide policies and criteria for the evaluation of the
Comprehensive Plan amendments. Compliance with these measures assures an adequate factual
basis for approval of the proposed Metro Plan diagram amendment. As discussed elsewhere in this
document, the proposed Plan Amendment is consistent with the Metro Plan and the Goals. By
demonstrating such compliance, the Amendments satisfy the consistency element of Goal 2.”
Finding 4: Goal 2 – Land Use Planning outlines the basic procedures for Oregon’s statewide
planning program. In accordance with Goal 2, land use decisions are to be made in accordance with
a comprehensive plan, and jurisdictions are to adopt suitable implementation ordinances that put the
plan’s policies into force and effect.
Finding 5: The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the
acknowledged comprehensive plan for guiding land use planning in Springfield. The City has
adopted other neighborhood- or area-specific plans (such as Refinement Plans) that provide more
detailed direction for land use planning under the umbrella of the Metro Plan. The City of
Springfield and the City of Eugene are in the process of adopting individual comprehensive plans to
ultimately replace the Metro Plan in accordance with the requirements in ORS 197.304 that each
city shall separately establish its own urban growth boundary and buildable lands inventory. The
Springfield City Council and Lane County Board of Commissioners co-adopted the Springfield
2030 Refinement Plan Residential Land Use and Housing Element, as a Springfield-specific
refinement to the Metro Plan. The residential land use policies of both the Metro Plan and the
Springfield 2030 Refinement Plan are applicable to this application.
Finding 6: The public hearing process used for amendment of the Metro Plan is specified in
Chapter IV Metro Plan Review, Amendments, and Refinements. The findings under Criteria B
(below) demonstrate that the proposed amendment will not make the adopted Metro Plan
internally inconsistent; and because this action maintains the surplus of LDR land staff find it is not
inconsistent with the policies in the Springfield 2030 Refinement Plan Residential Land use and
Housing Element.
Finding 7: The Springfield Development Code is a key mechanism used to implement the goals and
policies of the City’s adopted comprehensive plans. The proposal is classified as a Type I
amendment to the adopted Metro Plan diagram that is approved by Springfield only in accordance
with SDC 5.14-115.A. The proposed Metro Plan diagram amendment is processed as a Type IV
land use action (legislative) as described in SDC 5.1-140 and 5.14-130. Staff finds that the
proposed Metro Plan diagram amendment is consistent with the policies pertaining to Review,
Amendments and Refinements. Additionally, the proposed Metro Plan diagram amendment has
been initiated in accordance with the provisions of the City’s acknowledged Comprehensive Plan
and Development Code. Staff finds the proposed Metro Plan diagram amendment does not affect
City ordinances, policies, plans, and studies adopted to comply with Goal 2 requirements.
Attachment 1, Page 5 of 20
Goal 3 – Agricultural Land
Applicant’s Narrative: “Tax Lots within the subject site are designated by the Metro Plan as Low
Density Residential and by the Springfield Zoning Map as Low Density Residential (LDR), with the
exception of one tax lot that includes the Light Medium Industrial (LMI) designation. The proposal
does not involve designated agricultural lands. Therefore, the proposed Amendments are consistent
with Goal 3.”
Finding 8: Goal 3 – Agricultural Land applies to areas subject to farm zoning that are outside
acknowledged urban growth boundaries (UGBs): “Agricultural land does not include land within
acknowledged urban growth boundaries or land within acknowledged exceptions to Goals 3 or 4.”
(Text of Goal 3). The City has an acknowledged UGB and therefore consistent with the express
language of the Goal, does not have farm land zoning within its jurisdictional boundary.
Furthermore, the site of the proposed Metro Plan diagram amendment is inside the City’s
acknowledged UGB. Consequently, and as expressed in the text of the Goal, Goal 3 is not
applicable.
Goal 4 – Forest Land
Applicant’s Narrative: “Goal 4 does not apply to land included with the proposal. The tax lots
within Springfield jurisdiction are not designated for forest use and the proposed amendments will
not [be] removing land from the forestland base. Willamalane previously received a grant from the
U.S. Forest Service for the preparation of a community forest plan for a 78.97-acre tract of land in
[the] northern portion of THNA Park. The overarching goal of the community forest is to maintain
a large tract of productive forestland adjacent to an urban area and introduce public access,
recreation, environmental education, and best practices for sustained stewardship. A portion of the
park is located within Lane County jurisdiction and is designated as forestland. Proposed uses and
development within this portion will be addressed through separate land use approval processes
with Lane County. Therefore, the proposed Amendments are consistent with Goal 4.”
Finding 9: Goal 4 – Forest Land applies to timber lands zoned for that use that are outside
acknowledged UGBs with the intent to conserve forest lands for forest uses: “Oregon
Administrative Rule 660-006-0020: Plan Designation Within an Urban Growth Boundary. Goal 4
does not apply within urban growth boundaries and therefore, the designation of forest lands is not
required.” The City has an acknowledged UGB and does not have forest zoning within its
incorporated area. Furthermore, the site of the proposed Metro Plan diagram amendment is inside
the City’s UGB. Consequently, and as expressed in the text of the Goal, Goal 4 is not applicable.
Finding 10: As stated in the applicant’s narrative, approximately 245 acres of the project area lies
outside the City’s UGB and within Lane County jurisdiction. The comprehensive plan designation
and zoning for the Lane County portions of the project area are Forest land, and there are no
proposed changes to the plan designation or zoning. The applicant is addressing the Goal 4
requirements in more detail in the application submitted to Lane County under separate cover (Case
509-PA17-05292).
Goal 5 – Natural Resources, Scenic and Historic Areas, and Open Spaces
Applicant’s Narrative: “Goal 5 requires local governments to protect a variety of open space,
scenic, historic, and natural resource values. Goal 5 and its implementing rule, OAR Ch. 660,
Division 16, require planning jurisdictions, at acknowledgment and as a part of periodic review, to:
Attachment 1, Page 6 of 20
(1) identify such resources, (2) determine their quality, quantity, and location, (3) identify
conflicting uses, (4) examine the economic, social, environmental, and energy (ESEE)
consequences that could result from allowing, limiting, or prohibiting the conflicting uses, and (5)
develop programs to resolve the conflicts There is only one subject property on Springfield’s
acknowledged Metro Plan Goal 5 inventory. No threatened or endangered species have been
inventoried on the site, and no archaeological or significant historical inventoried resources are
located on the site. The National Wetland Inventory and Springfield Local Wetland Inventory maps
have been consulted and the site includes one inventoried Goal 5 resource. However, the proposed
Amendment does not change the protection status of the resource. It can be argued that the
proposed Amendment enabling the future development of the site as a regional park will help
protect the resource as opposed to the Low Density Residential classification. The proposed
Amendments also do not suggest development on the site that would impact the resource.
Therefore, the proposed Amendments do not alter the City’s compliance with Goal 5.”
Finding 11: Goal 5 – Open Spaces, Scenic and Historic Areas, and Natural Resources applies to
more than a dozen natural and cultural resources such as wildlife habitats and wetlands, and
establishes a process for each resource to be inventoried and evaluated. The site that is subject of
the proposed Metro Plan diagram amendment has been identified in the City’s Natural Resources
inventory, and it contains the Frederick Gray house which is an Oregon registered historic site.
Additionally, the project area is specifically identified as a major natural area park in the
Willamalane Park & Recreation District Comprehensive Plan.
Finding 12: The City does not have a specific zoning district which it applies to inventoried Goal 5
natural resources; the presence of these resources is completely independent of the process used to
zone and designate land. Protective measures for all of the City’s inventoried Goal 5 resources are
applicable to the resource and are not circumscribed or altered based on zoning classification. The
proposed amendment to the Metro Plan diagram does not modify or alter the City’s Development
Code or other Metro Plan policies relating to identified natural resources. In fact, the proposed plan
designation and zoning as Parks and Open Space enhances the opportunity for conservation and
protection of the natural and historic resources within the property.
Finding 13: The proposed diagram amendment does not make any changes to adopted Goal 5
natural resources development standards or protective measures adopted to comply with Goal 5
requirements. Therefore, this action does not alter the City’s acknowledged compliance with Goal
5.
Goal 6 – Air, Water and Land Resources Quality
Applicant’s Narrative: “The purpose of Goal 6 is to maintain and improve the quality of the air,
water and land resources of the state. Generally, Goal 6 requires that development comply with
applicable state and federal air and water quality standards. In the context of the proposed Metro
Plan diagram amendment, Goal 6 requires that the applicant demonstrate that it is reasonable to
expect that applicable state and federal environmental quality standards can be met. The proposed
Amendments do not modify any of the Goal 6 related policies of the Metro Plan, nor do they amend
the Regional Transportation Plan, the Springfield Development Code, other applicable Goal 6
policies, or any regulations implementing those policies. Therefore, the proposed Amendments do
not alter the City’s compliance with Goal 6.”
Finding 14: Goal 6 – Air, Water and Land Resources Quality applies to local comprehensive plans
and the implementation of measures consistent with state and Federal regulations on matters such as
Attachment 1, Page 7 of 20
clean air, clean water, and preventing groundwater pollution. The proposed Metro Plan diagram
amendment does not affect City ordinances, policies, plans, and studies adopted to comply with
Goal 6 requirements. Therefore, this action does not alter the City’s acknowledged compliance with
Goal 6.
Goal 7 – Areas Subject to Natural Hazards
Applicant’s Narrative: “Goal 7 requires that development subject to damage from natural hazards
and disasters be planned and/or constructed with appropriate safeguards and mitigation. The goal
also requires that plans be based on an inventory of known areas of natural disaster and hazards,
such as areas prone to landslides, flooding, etc. After review of the natural constraints map and the
FEMA Floodplain Map in relation to the subject area, the area is not included in the City’s
inventory of known areas of natural hazard other than steep slopes, which can be at-risk for
landslides. Proposed development of the site as a Regional Park does not propose incompatible
levels of development with steep slopes (such as roads, homes, or other infrastructure) and will be
designed accordingly to minimize the risk posed by steep slopes. The site is located well outside of
any established FEMA flood hazard areas. Therefore, approval of the proposed Amendments will
not alter the City’s acknowledged compliance with Goal 7 through its adopted plans, codes and
procedures.”
Finding 15: Goal 7 – Areas Subject to Natural Hazards applies to development in areas such as
floodplains and potential landslide areas. Local jurisdictions are required to apply “appropriate
safeguards” when planning for development in hazard areas. The City has inventoried areas subject
to natural hazards such as the McKenzie and Willamette River flood plains and potential landslide
areas on steeply sloping hillsides. Portions of the subject site are within the City’s mapped potential
landslide hazard areas – particularly the hillsides in the southwest quadrant of the property.
Additionally, the most recent mapping undertaken by the Oregon Department of Geology and
Mineral Industries (DOGAMI) to identify areas of high hazard and risk for landslide is included
with this report. The value of this map is primarily as a high level overview of the amount of this
area potentially affected by this hazardous condition. It is not meant to substitute for a detailed
survey undertaken by professional geologists and surveyors.
Finding 16: Based on the City’s topographical mapping information, much of the property subject
to the Metro Plan amendment and Zone Change has slopes exceeding 15 percent and/or lies above
the 670-foot elevation mark. Both of these factors contribute to the application of the City’s
Hillside Development (HD) Overlay District to the subject property. The HD Overlay District
informs the evaluation of potential urban development in these areas subject to the Overlay District.
In this regard, an evaluation of buildable lands potential would be benefited through the application
of the development limitations in SDC 3.3-500. However, in this instance, the proposed amendment
would ensure that urban density development would not occur on the subject property and that the
intent of minimizing development in hazardous areas is served by the change from LDR to PLO.
Finding 17: In addition to prescribing measures for minimizing the risk of slope instability and
protecting health and safety, the HD Overlay District is applied at the time that development is
proposed. It is immaterial to the standards of the HD Overlay District whether the proposed
development is for park, residential or any other type of land use. Depending upon the nature of the
proposed development, the standards and requirements of the HD Overlay District would provide
for the safest and most compatible use and development of the property. The applicant has
categorized this land as a “natural area park” and has committed to the future use of the park with
Attachment 1, Page 8 of 20
the least intrusive type of facilities and physical improvements – in this case, recreational trails and
community forest.
Finding 18: Where the application of the HD Overlay District regulations is of value to this
proposal is to help in determining the net developable area that might be available for residential
use. The City’s Residential Land and Housing Analysis identifies the subject property as being
almost entirely vacant, but much of it is constrained by steep slopes – including slopes in excess of
35%. In accordance with SDC Table 3.3-1, areas that have 35% slopes – if determined to be
developable at all – would have a net dwelling unit density of about one unit per acre based on a
40,000 ft2 minimum lot size and 200 feet of minimum lot frontage. This density is consistent with
similar properties developed in the same area and significantly less than the 6 to 14 dwelling units
per net acre that is required by the LDR District on unconstrained sites. Therefore, while the total
land area affected by the proposed Metro Plan Amendment and Zone Change is substantial, the
actual impact on dwelling unit numbers is much less than an equivalent amount of flat or gently
sloping, unconstrained land.
Finding 19: The applicant has applied the HD Overlay District standards in calculating the actual
net developable area of the property as found in the narrative in Section B.1 below. Of particular
interest to decision-makers is the applicant’s conclusion that, of the 421 acres of mostly constrained
residential land being removed from the City’s inventory, the net yield of developable land when
applying the HD Overlay District standards is actually about 159 acres. Therefore, the proposed
Metro Plan diagram amendment has no effect on City ordinances, policies, plans, and studies
adopted to comply with Goal 7 requirements and siting standards for development within the
Hillside Development Overlay District and landslide hazard areas. Furthermore, the site proposed
for Metro Plan diagram amendment is not exempted from conformance with regulations affecting
these hazard areas. Therefore, this action has no effect on the City’s acknowledged compliance with
Goal 7.
Goal 8 – Recreational Needs
Applicant’s Narrative: “Goal 8 requires local governments to plan and provide for the siting of
necessary recreational facilities to “satisfy the recreational needs of the citizens of the state and
visitors,” and where appropriate, provide for the siting of recreational facilities including
destination resorts. The Willamalane 20-year Park and Recreation Comprehensive Plan was
adopted by the City of Springfield as part of the Metro Plan’s compliance with Goal 8. The
applicant proposes conversion of 428.95 acres of Low Density Residential land for open space and
recreation purposes. The proposed Amendment designate said land for parks and open space use,
consistent with the definition of a Regional Park permitted in the zoning district. City approval of
the proposal will constitute an increase in the availability of public recreational facilities in the
area following development of said parkland. As such, changing the designation of the subject
property will have no impact on the City’s existing park and open space supply. In no case, as a
result of the proposed Amendment, would a reduction in recreational facilities occur. Through the
proposed Amendment, the proposal will increase the amount of recreation capacity within
Springfield. The proposal does not involve the siting of destination resorts. Based on these
findings, the proposed Amendments are consistent with Goal 8.”
Finding 20: Goal 8 – Recreational Needs requires communities to evaluate their recreation areas
and facilities and to develop plans to address current and projected demand. The provision of
recreation services within Springfield is the responsibility of Willamalane Park & Recreation
District. As previously stated herein, Willamalane has an adopted 20-Year Comprehensive Plan for
Attachment 1, Page 9 of 20
the provision of park, open space and recreation services for Springfield which was acknowledged
by the Department of Land Conservation and Development after adoption by the Springfield City
Council on November 4, 2013. The proposed Metro Plan diagram amendment would be consistent
with Willamalane’s adopted Comprehensive Plan, which is a refinement plan to the Metro Plan.
The Thurston Hills Natural Area Park is identified as a key element of the Comprehensive Plan
(Project 3.9). Because the City has co-adopted the Willamalane Comprehensive Plan as a
refinement plan to the Metro Plan for purposes of consistency with Goal 8 Recreational Needs, the
proposed action would be consistent with the provisions of the adopted comprehensive plans. The
proposal would not conflict with other ordinances, policies, plans, and studies adopted to comply
with Goal 8 requirements. Therefore, this action has no adverse effect on the City’s acknowledged
compliance with Goal 8.
Goal 9 – Economic Development
Applicant’s Narrative: “Goal 9 requires the city to provide adequate opportunities for a variety of
economic activities vital to the health, welfare, and prosperity of the citizens. The proposed
Amendments will not affect the city’s capacity for economic development, and do not alter the City’s
compliance with Goal 9.”
Finding 21: Goal 9 – Economic Development addresses diversification and improvement of the
economy. It requires local jurisdictions to conduct an inventory of commercial and industrial lands,
anticipate future needs for such lands, and provide enough appropriately-zoned land to meet the
projected demand over a 20-year planning horizon. The City previously completed an analysis of its
employment land base and determined that a deficit existed. To address the projected deficit of
commercial and industrial land, the City has undertaken a multi-year process to expand the Urban
Growth Boundary (UGB) in the Gateway and South 28th Street areas. Expansion of the UGB is
intended to provide sufficient employment-generating land area for the mandated 20-year planning
horizon. The proposed redesignation and rezoning of the subject property would not have an effect
on the amount of employment land within the City’s inventory.
Finding 22: The proposed redesignation and rezoning would not affect other City ordinances,
policies, plans, and studies – such as the Commercial-Industrial Buildable Lands (CIBL) Survey –
adopted to comply with Goal 9 requirements. All of the city’s economic development policies
related to zoning classifications rely on commercial, industrial and mixed use land inventories. This
proposed redesignation would not have an effect on the commercial and industrial land inventory
and would not adversely impact the City’s acknowledged compliance with Goal 9.
Finding 23: The subject property is listed in the residential land inventory as discussed in Goal 10
findings below, and conversion to a different type of land use was not envisioned for this site when
the City completed its studies and conclusions in 2011. A portion of Assessor’s Map 18-02-09-00,
Tax Lot 100 is inside the City limits and is currently zoned Light Medium Industrial (LMI), but is
designated LDR on the Metro Plan diagram. A plan-zone conflict currently exists for this parcel
that will be corrected by the proposed Metro Plan Diagram amendment and Zone Change. Staff
observes that, notwithstanding the LMI zoning, the LDR designation for the portion of Tax Lot 100
inside the City limits constitutes a plan-zone conflict which means that this parcel would not have
been counted as part of the City’s CIBL inventory. Therefore, the proposed redesignation and
rezoning of Tax Lot 100 should have no impact on the CIBL Inventory and the City’s actions to
expand the UGB for employment purposes.
Attachment 1, Page 10 of 20
Goal 10 - Housing
Applicant’s Narrative: “Goal 10 requires that communities plan for and maintain an inventory of
buildable residential land for needed housing units. The 2011 Springfield Residential Land and
Housing Needs Analysis (RLHNA) analyzes housing inventory and need for the next 20 year and is
Springfield’s most current adopted housing study related to Goal 10. Analysis of the subject site
identified 159.08 acres of buildable residential land that were included in the RLHNA inventory.
Removal of the land from the residential inventory will not detrimentally affect the City’s existing
surplus of building residential land in the Low Density Residential zoning district. The findings
under Metro Plan Residential Land Use and Housing Element Policy A.3 are incorporated by
reference herein as demonstration of consistency with Goal 10.”
Finding 24: Goal 10 – Housing applies to the planning for – and provision of – needed housing
types, including multi-family and manufactured housing. As noted by the applicant’s narrative, staff
and third-party analysis has determined that a surplus of LDR designated land exists within the
City’s land inventory. Redesignation and rezoning of the subject property would have a significant
impact to the City’s overall residential land base. The proposal would not reduce the City’s
residential land inventory below threshold levels requiring mitigation or compensatory actions
elsewhere within the UGB, but it will require an adjustment to the City’s tabulation of buildable
residential land still in the inventory. Recently, about 7 acres of LDR land was removed from the
inventory upon adoption of Ordinance 6364 on March 7, 2017. Approximately 370 acres of LDR
designated land remained within the City’s buildable residential land inventory after adoption of
Ordinance 6364 (Table 6-7, Residential Land and Housing Element, Springfield 2030 Refinement
Plan). The applicant will need to provide revised LDR inventory numbers in their narrative based
on the modified total after adoption of Ordinance 6364, plus the removal of about 159.08 net acres
of LDR with the proposed Metro Plan Amendment and Zone Change. As proposed, the action
would bring the City’s inventory of surplus LDR land to just under 211 acres. Further discussion of
the potential impact of this proposal to the City’s residential land inventory is found in Section B.1
below.
Finding 25: The applicant’s narrative identifies findings in response to Metro Plan Housing
Element Policy A.3 as demonstration of consistency with Goal 10. The applicant’s narrative does
not specifically address any policies within the Springfield 2030 Plan Residential Land Use and
Housing Element, but because the proposed amendment maintains the surplus of LDR designated
land, staff find the proposed amendment is not inconsistent with the Springfield 2030 Plan
Residential Land Use and Housing Element.
Goal 11 – Public Facilities and Services
Applicant’s Narrative: “Goal 11 requires the provision of a timely, orderly and efficient
arrangement of public facilities and services. The subject site can be served by an orderly extension
of urban services. The proposed Amendments will not affect the ability to provide needed services.
Therefore, the Amendments are consistent with Goal 11.”
Finding 26: Goal 11 – Public Facilities and Services addresses the efficient planning and provision
of public services such as sewer, water, law enforcement, and fire protection. In accordance with
OAR 660-011-0005(5), public facilities include water, sewer and transportation facilities, but do not
include buildings, structures or equipment incidental to the operation of those facilities. The
proposed redesignation and rezoning will not result in permitted uses that will have an appreciable
effect on the demand for public facilities and services provided to the subject property and adjacent
Attachment 1, Page 11 of 20
properties. In fact, removal of the subject property from the residential land inventory greatly
reduces the demand for public facilities and services that otherwise would be required to develop the
land to urban standards – particularly for land within steeply-sloping, hillside areas. Therefore, the
City’s continued acknowledged compliance with Goal 11 is not affected by this proposal.
Goal 12 – Transportation
Applicant’s Narrative: “Goal 12 requires local governments to provide and encourage a safe,
convenient and economical transportation system. The proposed map Amendment involves
approximately 666 acres of property, of which the majority is within the Low Density Residential
zoning district. In compliance with OAR 660-012-0060, a transportation analysis report is included
as Exhibit D. This report highlights that the PM peak hour and average daily trip (ADT) generation
associated with the proposed use is a reduction in the potential that would be generated by the site if
it were developed under land use permissions associated with the existing plan and zone
designations. Therefore, the Amendments are consistent with Goal 12.”
Finding 27: The proposed redesignation and rezoning from LDR and LMI to PLO would change
the types of uses permitted to be developed on the property, and significantly reduce the intensity of
use on the subject property. Although the PLO District allows for a variety of recreational, cultural
and educational buildings and facilities (including schools and recreation centers), the planned
Thurston Hills Natural Area Park will not have such facilities. The applicant’s project narrative and
supporting transportation analysis acknowledges that the proposed Metro Plan Diagram amendment
and Zone Change would result in a marked reduction in vehicle trips associated with the property.
Finding 28: Oregon Administrative Rules (OAR) 660-012-0060 requires that, “if an amendment to
a functional plan, an acknowledged comprehensive plan, or a land use regulation (including a
zoning map), would significantly affect an existing or planned transportation facility, then the local
government must put in place measures” to mitigate the impact, as defined in OAR 660-012-
0060(2).
Finding 29: The proposed Metro Plan Diagram amendment and Zone Change, and eventual
development of the Thurston Hills Natural Area Park itself, affects portions of southeast Springfield
identified for extension of local and collector streets to complete the transportation network for the
area. The City’s adopted Conceptual Street Network Map identifies a number of north-south and
east-west connector streets that pass through the subject property. Portions of the Thurston Hills
that abut the western and northwestern edges of the subject property are isolated by geography and
intervening land ownership. As a result, the fragmented road network lacks good connectivity that
facilitates efficient emergency response and promotes the dispersal of traffic throughout the system.
Finding 30: The City of Springfield and Willamalane Parks and Recreation District have come to a
tentative agreement and are in process of executing an memorandum of understanding to allow for a
temporary emergency access road to replace the planned local road extension of Jessica Drive
shown on the Conceptual Local Street Map through the northern stub of the property proposed for
Metro Plan Diagram amendment and Zone Change (Attachment 8). This extension, if warranted in
the future, will provide the necessary secondary emergency access to adjoining developable
residential properties.
Finding 31: The applicant has provided a memorandum from an Oregon Licensed Professional
Engineer addressing Oregon’s Transportation Planning Rule Goal 12 requirements. The finding of
“no significant effect” is accepted and approved by the City of Springfield based on a lack of trip
Attachment 1, Page 12 of 20
generation associated with the proposed zone change from Low Density Residential (LDR) to Parks
and Open Space.
Finding 32: The City of Springfield’s adopted Transportation System Plan (TSP) includes a planned
“as development occurs” collector street which is shown bisecting the property proposed for the
Metro Plan Diagram amendment and Zone Change. This collector street would provide
connectivity around the southern side of the Mountaingate development connecting with planned
park, school and commercial development areas. Since no urban-density development will occur on
the subject property, the collector street will remain a planned facility in the TSP, but will need to be
implemented through mechanisms other than development of the area for residential uses if the
Metro Plan Diagram amendment and zone change are approved.
Goal 13 – Energy Conservation
Applicant’s Narrative: “The Energy goal is a general planning goal and provides limited guidance
for site-specific map amendments. Goal 13 is directed at the development of local energy policies
and implementing provisions and does not establish any requirements with respect to other types of
land use decisions. To the extent that Goal 13 could be applied to the proposed Amendments, the
designations are consistent with Goal 13. The proposal will not hinder management or
conservation practices related to energy consumption.”
Finding 33: Goal 13 – Energy Conservation states that “land and uses developed on the land shall
be managed and controlled so as to maximize the conservation of all forms of energy, based upon
sound economic principles”. The proposed comprehensive plan amendment and rezoning does not
affect the City’s ordinances, policies, plans, or studies adopted to comply with Goal 13
requirements. Converting the 421 acres of property from LDR to PLO should result in a significant
reduction in energy consumption because a natural area park has a minimal energy footprint in
comparison to an equivalent area developed with single family dwellings. The developer will have
an opportunity to incorporate suitable energy conservation measures into the future site development
upon redesignation and rezoning of the subject property. The City’s building codes comply with all
Oregon State Building Codes Agency standards for energy efficiency in residential building design.
The site’s solar access is not compromised by surrounding development. The City’s conservation
measures applicable to storm water management, erosion and sediment control, and groundwater
protection apply to all recreational uses developed on this site; therefore, this action has no effect on
the city’s acknowledged compliance with Goal 13.
Goal 14 - Urbanization
Applicant’s Narrative: “The proposed Amendments apply to a site that is currently undeveloped
and rural in nature. By cultivating the space as a Regional Park, a more seamless interface is
created between the rural and urban environment, enhancing the livability of the urban area.
Therefore, Goal 14 does not apply.”
Finding 34: Goal 14 – Urbanization requires cities to estimate future growth rates and patterns, and
to incorporate, plan, and zone enough land to meet the projected demands. The City did not plan for
recreational land use on the subject property when completing its Residential Land and Housing
Inventory. However, consistent with provisions of Goal 14, the City is responding to a request from
a public agency to redesignate and rezone the subject property from residential to public parks and
open space. The proposed comprehensive plan amendment and zone change will be noted on both
the residential land inventory and the public open space inventory; similar reporting of inventory
Attachment 1, Page 13 of 20
changes due to development will occur as required by ORS. However, the proposed redesignation
and zone change does not affect the City’s adopted ordinances, policies, plans, or studies adopted to
satisfy the compliance requirements of Goal 14.
Goal 15 – Willamette River Greenway
Applicant’s Narrative: “Goal 15 does not apply to the proposal because the subject area is not
located within the Willamette River Greenway.”
Finding 35: Goal 15 – Willamette River Greenway establishes procedures for administering the 300
miles of greenway that borders the Willamette River, including portions that are inside the City
limits and UGB of Springfield. The subject site is not within the adopted Willamette River
Greenway Boundary area so this goal is not applicable. The proposed comprehensive plan
amendment and zone change does not change or nullify the requirement for development proposals
to comply with the City’s existing Willamette River Greenway regulations regardless of the
underlying zoning, and to demonstrate compliance with Goal 15 requirements. Any new
development proposed on land within the Willamette Greenway Overlay District would be subject
to a separate Type III land use approval process requiring a public hearing before the Springfield
Planning Commission, therefore this action has no effect on the city’s acknowledged compliance
with Goal 15.
Goals 16-19 Estuarine Resources, Coastal Shorelands, Beaches and Dunes, and Ocean Resources
Applicant’s Narrative: “The subject site is not located within any coastal, ocean, estuarine, or
beach and dune resources related area. Goals 16-19 do not apply to this application.”
Finding 36: Goals 16-19 – Estuarine Resources; Coastal Shorelands; Beaches and Dunes; and
Ocean Resources; these goals do not apply to land within the Willamette Valley, including
Springfield. Therefore, in the same way that Goals 3 and 4 do not apply in Springfield, Goals 16-19
do not apply in Springfield or to land use regulations adopted in Springfield.
Conclusion: Staff has concluded, with the exception of Goal 7 – Areas Subject to Natural Hazards
(as explained in the preceding text under this Goal), that the proposed Metro Plan diagram land use
designation amendment from Low Density Residential to Parks and Open Space is consistent with
the criteria for such action in SDC 5.14-135 (A): “The amendment shall be consistent with
applicable Statewide Planning Goals.”
B. Plan Inconsistency
1. In those cases where the Metro Plan applies, adoption of the amendment shall not make the
Metro Plan internally inconsistent.
Applicant’s Narrative: “The application requests amendment of the Metro Plan diagram from Low
Density Residential to Parks and Open Space for 421.15 acres. This section of the application
narrative addresses the consistency of the Amendments with the applicable policies of the Metro
Plan, to demonstrate that adoption of the Amendments will not make the Metro Plan internally
consistent. This narrative only addresses those policies that apply to the proposal, and does not
discuss those portions of the Metro Plan that (1) apply to land uses other than the current or
proposed designations for the subject site and will not be affected by the proposed Plan diagram, or
(2) clearly apply only to specific development applications (e.g., site plan review submittals or
Attachment 1, Page 14 of 20
subdivisions). All Metro Plan policies were evaluated in relation to their applicability to the
Amendments and the following policies were found to be applicable to the proposal. The findings
demonstrate how the Plan Amendments are consistent with, and are in fact supported by the policy
directions contained in the Metro Plan.
Metropolitan Residential Land Use and Housing Element
Residential Land Supply and Demand
A.3. Provide an adequate supply of buildable residential land within the UGB for the
20-year planning period at the time of Periodic Review.
In June 2011, the City of Springfield adopted an ordinance amending the Metro Plan to adopt the
Springfield 2030 Refinement Plan Residential Land Use and Housing Element and to establish a
separate Springfield Urban Growth Boundary pursuant to ORS 197.304. The ordinance included
the Springfield Residential Land and Housing Needs Analysis (RLHNA), which is an ‘analysis of
land supply and housing demand prepared by ECONorthwest that incorporates input from citizens,
stakeholder groups, commissions, and elected officials received throughout a multi-year citizen
involvement process that included a Residential Lands citizen advisory committee, online public
surveys, community workshops, work sessions, open houses and public hearings.’ This analysis
applies to the proposal, which involves the removal of land from the residential inventory.
According to the RLHNA, Springfield has a 378-acre surplus of Low Density Residential land, and a
300-acre deficit of Parks and Open Space Land. In regard to parks and open space land, the
technical analysis on page 71 states:
‘The Parks and Open designation has a deficit of 300 acres. This need does not imply that
the City should expand the UGB for parks and open space. The City has a surplus of
buildable lands in the low and medium density residential plan designations that can provide
land for future parks within those designations, consistent with the objectives of the adopted
Park and Recreation Comprehensive Plan. A portion of the parks and open space need can
also be met on residentially designated land that has constraints and therefore is not counted
as buildable acres (e.g. ridgeline trail systems).’
As discussed above, the technical analysis identifies a deficit of land in the Parks and Open Space
designation and includes an estimate of future land needs. The estimate of land needed for parks
and open space uses a parkland standard of 14 acres per 1,000 persons based on the level of service
standard established in the 2004 Willamalane Parks and Recreation Comprehensive Plan, which
projected need for parkland in Springfield between 2002 and 2022. Based on the level of service
standard, an additional 357 acres of parks and open space land is needed by 2030. Although
Willamalane adopted an update to the Comprehensive Plan in 2012, the 2004 Comprehensive Plan
was the adopted plan at the time of preparation of the RLHNA. The estimates of parks and open
space land needs in the RLHNA and 2012 Plan are consistent (357 acres and 364 acres,
respectively). The projected deficits of 357 acres in the Springfield RLHNA and 364 acres in the
2012 Plan fall within the estimated surplus of buildable land remaining in the UGB for residential
use in Springfield by 2030. In addition, Statewide Planning Goal 8 allows cities and park districts
to acquire land for park uses outside of Urban Growth Boundaries. Willamalane’s service district
boundary and planning area extend outside the Springfield UGB in some areas. However, a
majority of the proposed parkland is within the UGB on residentially designated land, a portion of
which is land that has constraints and therefore is not counted as buildable acres. The RHLNA
database was obtained from the City of Springfield and reviewed in order to isolate properties
associated with THNA Park that were included in the analysis and are within Springfield
jurisdiction. Based on these properties, the Applicant identified buildable residential acres
Attachment 1, Page 15 of 20
associated with each tax lot and resolved several discrepancies in the database. The analysis
determined that 159.08 acres within subject site are accounted for in the RHLNA as buildable
residential acres, as illustrated in Table [4-1] Buildable Residential Acres within THNA Park [See
Page 22 of applicant’s submittal]. Removal of the residential buildable acres from Springfield’s
housing inventory will result in a remaining surplus of more than 300 acres of buildable residential
acres. Thus, the proposal is consistent with this functional plan. Willamalane’s service district
boundary and planning area extend outside the Springfield UGB in some areas. However, a
majority of the proposed parkland is within the UGB on residentially designated land, a portion of
which is land that has constraints and therefore is not counted as buildable acres. The land outside
of the UGB is rural/forestland in character and will not be negatively impacted by the Amendments.
Based on these findings, the proposed Amendments are consistent with the Residential Land Use
and Housing element of the Metro Plan.
Environmental Resources Element
Forest Lands
C.5. Metropolitan goals relating to scenic quality, water quality, vegetation and wildlife,
open space, and recreational potential shall be given a higher priority than timber
harvest within the UGB.
C.7a. Conserve forest lands by maintaining the forest land base and protect the state’s
forest economy by making possible economically efficient forest practices that
assure the continuous growing and harvesting of forest tree species as the leading
use on forest land consistent with sound management of soil, air, water, and fish
and wildlife resources and to provide for recreational opportunities and
agriculture.
Riparian Corridors, Wetlands, and Wildlife Habitat
C.8. Local governments shall develop plans and programs which carefully manage
development on hillsides and in water bodies, and restrict development in wetlands
in order to prevent erosion and protect the scenic quality, surface water and
groundwater quality, forest values, vegetation, and wildlife values of those areas.
The proposal will not amend, supersede, or violate any adopted regulations, plans, or programs that
manage development impacts on natural resources. The proposal will not compromise existing
established protection provisions in the SDC, will protect the amount of open space along the
ridgeline, and will create a community forest. There are no documented occurrences of endangered
or threatened plant or wildlife species on the subject site. There is one wetland site per the National
Wetland Inventory, which will be better protected from future development under the proposed
Parks and Open Space designation than the existing Low Density Residential designation. THNA
Park will conserve forestland through a community demonstration forest, and the Regional Park
designation will protect the scenic quality of the hillside. Based on these findings, the proposed
Amendments are consistent with the Environmental Resources Element.
Open Space
C.21. When planning for and regulating development, local governments shall consider
the need for protection of open spaces, including those characterized by
significant vegetation and wildlife. Means of protecting open space include but are
not limited to outright acquisition, conservation easements, planned unit
development ordinances, streamside protection ordinances, open space tax
deferrals, donations to the public, and performance zoning.
Attachment 1, Page 16 of 20
Willamalane currently manages approximately 783 acres of land in 37 parks and three undeveloped
properties, including two parks classified as Natural Area Parks. ‘Environment’ and ‘Stewardship’
are two of Willamalane’s Core Values (2012 Plan, p. 8), and the 2012 Plan is guiding the proposed
development of THNA Park. One of the “General Parks and Natural Areas Strategies” in the 2012
Plan that is applicable to the proposed park and supports the policies in the Environmental
Resources Element of the Metro Plan is as follows:
‘A7. Work with interested parties to acquire and preserve natural areas for future generations.’
(2012 Plan, p. 27)
In addition, four ‘Natural Area Park Strategies’ in the 2012 Plan that will be applied to THNA Park
support the goals and policies in the Environmental Resources Element of the Metro Plan.
‘A39. Acquire and develop a system of natural-area parks that protects, conserves and
enhances elements of the natural and historic landscape that give the region its unique
sense of place.’ (2012 Plan, p. 39)
‘A40. Develop comprehensive natural resource management plans for natural areas as a basis
for making acquisition, development and restoration decisions.’ (2012 Plan, p. 39)
‘A41. Provide opportunities for nature-based recreation, such as wildlife viewing, fishing,
hiking, bicycling, nature play, etc.’ (2012 Plan, p. 39)
‘A42. Protect and enhance a variety of habitat types within Willamalane’s park and open space
system, including upland and wildlife communities such as oak savannah, wetlands,
upland prairie and riparian forest.’ (2012 Plan, p. 39)
These strategies are applicable to the proposed Amendments and subsequent park development. The
park will be public regional open space, and will preserve vegetation and wildlife through
trailheads, trails, and a community demonstration forest. The proposed Amendments
singlehandedly facilitate the project’s development, which is inherently open space protection by
designation. Based on these findings, the proposed Amendments are consistent with the
Environmental Resources Element of the Metro Plan.
Environmental Design Element
E.1 In order to promote the greatest possible degree of diversity, a broad variety of
commercial, residential, and recreational land uses shall be encouraged when consistent
with other planning policies.
E.2 Natural vegetation, natural water features, and drainage-ways shall be protected and
retained to the maximum extent practical. Landscaping shall be utilized to enhance those
natural features. This policy does not preclude increasing their conveyance capacity in
an environmentally responsible manner.
E.5. Carefully develop sites that provide visual diversity to the urban area and optimize their
visual and personal accessibility to residents.
The Environmental Design Element of the Metro Plan sets broad goals and policies for desired
qualities of life in the Eugene-Springfield area. The proposed Amendments promote diversity by
increasing the amount of recreational land use in Springfield, and have the potential to offer the
first mountain biking recreational area in the city. In addition, by converting land zoned Low
Density Residential to Parks and Open Space, natural vegetation can be protected and retained to
the maximum extent practical. The core use of the Natural Park as defined by Willamalane is for
‘wildlife habitat and natural resource conservation,’ with an 80/20 split in land designated for
preservation versus land for recreation. Preserved from development, the site can house a
Attachment 1, Page 17 of 20
community forest, and the single wetland located within the site boundary can be protected. The
proposed Amendments also enable visual diversity by creating a richer interface between the urban-
rural boundary. Based on these findings, the proposed Amendments are consistent with the
Environmental Design Element of the Metro Plan.
Transportation Element
Transportation System Improvements: Roadways
F.14. Address the mobility and safety needs of motorists, transit users, bicyclists,
pedestrians, and the needs of emergency vehicles when planning and constructing
roadway system improvements.
Springfield’s 2035 Transportation System Plan (TSP) identifies two potential future roadway
projects in the vicinity of the subject site: R-45 and R-46. R-45 focuses on improvements within the
Jasper-Natron area, and involves constructing multiple roadways between Bob Straub Parkway,
Jasper Road, and Mt. Vernon Road. R-46 addresses Bob Straub Parkway to Mountaingate Drive
and involves a new collector with a three-lane cross-section with sidewalks and bicycle facilities.
The Springfield Conceptual Local Street Map shows several future local streets in the vicinity of the
subject site. These future streets include an extension of a private road off of Weyerhaeuser Road, a
connection between Mountaingate Drive and [South] 66th Street, and extensions and connections of
Jessica Street and [South] 69th Street. Planned connections are also anticipated between Daisy
Street, Glacier Street, and [South] 79th Street. Language included in Recital 16 of the MOU
between Willamalane and City regarding the Thurston Hills Natural Area addresses future roadway
and street projects. This language is included for reference:
16. Portions of the area included by Willamalane in the Thurston Hills Natural Area Park are
identified for possible future roadway extensions in the City’s adopted Conceptual Street
Map. City acknowledges that all extensions depicted on the Conceptual Street Map may
not be needed given that the Willamalane-owned property will not be developed for
residential uses, but that an access for the connectivity and/or public safety purposes may
be required as a condition of approval through the Metro Plan amendment and zone
change process.
The annexation agreement between Willamalane and the City resulting from a separate request for
Annexation application approval of Map 17-02-35-00 Lot 03602 will address future street
extensions. Approval of the proposed Amendments will not disrupt roadway system improvements
or the mobility and safety needs of motorists, transit users, bicyclists, pedestrians, and emergency
vehicles.
Parks and Recreation Facilities Element
H.1. Develop a system of regional-metropolitan recreational activity areas based on a
facilities plan for the metropolitan area that includes acquisition, development, and
management programs. The Metro Plan and system should include reservoir and hill
parks, the Willamette River Greenway, and other river corridors.
The Goal of the Parks and Recreation Facilities Element is to provide a variety of parks and
recreation facilities to serve the diverse needs of the community’s citizens (Metro Plan, III-H-4).
The proposed Amendments are required to enable the acquisition of land for and development of a
Regional Park, and to further satisfy the need for a larger parks inventory in Springfield. Based on
these findings, the proposed Amendment is consistent with the Parks and Recreation Facilities
Element of the Metro Plan.
Attachment 1, Page 18 of 20
Citizen Involvement Element
K.2. Maintain and adequately fund a variety of programs and procedures for encouraging
and providing opportunities for citizen involvement in metropolitan area planning
issues. Such programs should provide for widespread citizen involvement, effective
communication, access to technical information, and feedback mechanisms from
policymakers.
The development of THNA Park has been characterized by citizen involvement from its inception to
its implementation. The Willamalane Park and Recreation Comprehensive Plan was updated in
2012, using feedback from surveys, public events, and outreach activities. This feedback sparked
the development of THNA Park and the project was listed in the 2012 Plan as a key area of
development. Springfield-area voters approved Measure 20-199 in 2012, a $20 million
Willamalane Park and Recreation District Bond to further support the project and fund expansion
of trails and preservation of parkland around hillsides, rivers, and streams. The Planning
Commissions of both Springfield and Lane County will meet jointly to review the proposal and will
accept public testimony on the proposal. Citizens will also have the opportunity to participate in the
subsequent design process for amenities within THNA Park.”
Finding 37: The adopted Metro Plan is the principal policy document that creates the broad
framework for land use planning within the City of Springfield. The City’s adopted Zoning Map
implements the zoning designations of the Metro Plan diagram and localized Refinement Plans.
The subject property is not within an adopted Refinement Plan area so the Metro Plan is the
prevailing Comprehensive Plan for the site; however, as has been previously cited, the Springfield
2030 Refinement Plan Residential Land Use and Housing Element was adopted in 2011 as
refinements to the Metro Plan; any proposed amendment to the City’s residential inventory must be
consistent with the Springfield comprehensive plan element in addition to those of the Metro Plan
Residential Land Use Element.
Finding 38: In accordance with Chapter IV – Metro Plan Review, Amendments, and Refinements,
the City’s Comprehensive Plan is not designed or intended to remain static and unyielding in its
assignment of land use designations. To that end, provisions of Chapter IV, Policy 7.a, allow for
property owners and public agencies to initiate an amendment to the Metro Plan diagram to reflect a
change in circumstances or need. The applicant is proposing to amend the Metro Plan designation
for the subject property from LDR to Parks and Open Space, and to concurrently rezone the property
from LDR and LMI to PLO. There are no conflicts created by this proposed diagram amendment
based on needed residential land inventories, and, according to the applicant’s narrative, the
proposed amendment addresses a deficit of public natural open space in the community. The
development of this land with recreational uses does not significantly conflict with other land use
elements in the Metro Plan including residential, commercial, industrial, or government and
education. Therefore, Criterion B.1 has been met.
2. In cases where Springfield Comprehensive Plan applies, the amendment shall be consistent
with the Springfield Comprehensive Plan.
Applicant’s Narrative: “The Springfield Comprehensive Plan is represented through the Metro
Plan. All criteria for the Metro Plan have been met based on the preceding findings. The proposed
Amendments are consistent with all applicable Metro Plan approval criteria.”
Finding 39: As previously stated, the subject property is also subject to the policies of the
Springfield 2030 Refinement Plan Residential Land Use and Housing Element, which is an element
Attachment 1, Page 19 of 20
of the Springfield Comprehensive Plan. The proposed amendment does not eliminate the surplus of
LDR designated lands identified in that element, and therefore the proposed amendment is
consistent with the Springfield Comprehensive Plan. Therefore, Criterion B.2 has been met.
Conclusion and Recommendation
Based on the applicant’s narrative, the findings above, and the criteria of SDC 5.14-135 for approving
amendments to the Metro Plan, staff finds the proposed Metro Plan diagram amendment and zone change
from LDR and LMI to PLO is consistent with these criteria. Staff recommends that the Planning
Commission support the proposal.
Attachment 1, Page 20 of 20
Staff Report and Findings
Springfield Planning Commission
Zone Change Request (Willamalane Park & Recreation District)
Hearing Date: June 6, 2017
Case Number: TYP317-00003
Applicant: Colin McArthur, Cameron McCarthy Landscape Architects and Planners on behalf of
Willamalane Park & Recreation District
Property Owner: Willamalane Park & Recreation District
Site: Ten contiguous properties extending from McKenzie Highway in the northeast to the
Weyerhaeuser haul road in the southwest (Assessor’s Map 17-02-35-00, Tax Lots 3500, 3602 &
3604; Map 18-02-02-00, Tax Lots 100, 400 & 401; Map 18-02-03-00, Tax Lots 600 & 602; Map 18-
02-09-00, Tax Lot 100; and Map 18-02-10-00, Tax Lot 100)
Request
Rezone Assessor’s Map 17-02-35-00, Tax Lots 3500, 3602 & 3604; Map 18-02-02-00, Tax Lots
100, 400 & 401; Map 18-02-03-00, Tax Lots 600 & 602 and Map 18-02-10-00, Tax Lot 100 from
Low Density Residential (LDR) to Public Land and Open Space (PLO).
Rezone Assessor’s Map 18-02-09-00, Tax Lot 100 from Light Medium Industrial (LMI) to PLO.
Site Information/Background
The application was initiated and accepted as complete on January 27, 2017, and the initial joint
Springfield and Lane County Planning Commissions public hearing on the matter of the Zone Change
request is scheduled for June 6, 2017. The Zone Change request is being processed concurrently with a
Metro Plan Diagram amendment submitted under separate cover, Case TYP417-00001. The joint City
Council and Lane County Board of Commissioners will be reviewing both applications at a public hearing
meeting scheduled for September 18, 2017.
The property that is subject of the Zone Change request includes a parcel containing an existing
residential dwelling addressed as 7575 McKenzie Highway, and nine contiguous vacant parcels that
extend uphill and to the southwest of said property to the Weyerhaeuser haul road. Approximately 421
acres of the property are inside the Springfield Urban Growth Boundary (UGB), and about 245 acres lie
outside the City’s UGB and in Lane County jurisdiction. Of the 421 acres inside the City’s UGB,
approximately 410.5 acres is zoned and designated LDR and 10.7 acres is designated LDR but currently
zoned Light Medium Industrial (LMI).
The applicant is proposing the zone change from LDR and LMI to Public Land and Open Space (PLO) to
facilitate construction of the Thurston Hills Natural Area Park. The park development would be limited
primarily to a trailhead parking lot off McKenzie Highway and a network of walking, hiking and
mountain biking trails extending through the 666+ acres of open space between the State highway
frontage to the north and the Weyerhaeuser haul road to the southwest.
Attachment 2, Page 1 of 8
Notification and Written Comments
Notification of the June 6, 2017 joint Springfield and Lane County Planning Commissions public hearing
was sent to all property owners and residents within 300 feet of the site on May 16, 2017. Notification was
also published in the May 16 and 23, 2017 editions of The Register Guard. Staff responded to two
telephone calls and one written comment was received from Dave and Kelly Moore, 7291 Holly Street,
Springfield, 97478: “We live at 7291 Holly Street and our property backs directly up to the project site.
Although we appreciate how the land is being used, we have concerns about the proximity of the trails to
our house. Do you have any insight on where the trails will be, and if so do you expect our home to be
visible from the trails?”
Staff Response: Staff referenced the conceptual trail layout plan provided by Willamalane for the project
area. While not a final design or as-built alignment for the planned trail system, it does provide a general
idea of the proximity of trails to existing homes to the west and northwest. The general location of the
primary “spine” trail that will pass to the east and south of homes on Holly Street is already known because
it is based on an existing timber access road. Based on this information and available air photo imagery,
staff estimates that the main trail system will be at least 400 feet from the respondents’ property. However,
as the trail system develops there may be tributary connections from residential neighborhoods to the west
and northwest of the Thurston Hills Natural Area Park. With the density of existing tree cover and planned
trail alignments located internal to the Willamalane property, it is unlikely that the trail system and its users
would be conspicuously visible or overheard from perimeter residential homes. Staff also notes that the
natural area trail system will be subject to further land use approvals thereby allowing interested residents
and property owners an opportunity to review the planned trail network and its proximity to nearby streets
and residential areas.
Criteria of Approval
Section 5.22-100 of the Springfield Development Code (SDC) contains the criteria of approval for the
decision maker to utilize during review of Zoning Map amendment requests. The Criteria of Zoning Map
amendment approval criteria are:
SDC 5.22-115 CRITERIA
C. Zoning Map amendment criteria of approval:
1. Consistency with applicable Metro Plan policies and the Metro Plan diagram;
2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development
Plans and functional plans; and
3. The property is presently provided with adequate public facilities, services and transportation
networks to support the use, or these facilities, services and transportation networks are
planned to be provided concurrently with the development of the property.
4. Legislative Zoning Map amendments that involve a Metro Plan Diagram amendment shall:
a. Meet the approval criteria specified in Section 5.14-100; and
b. Comply with Oregon Administrative Rule (OAR) 660-012-0060, where applicable.
Attachment 2, Page 2 of 8
Proposed Findings In Support of Zone Change Approval
Criterion: Zoning Map amendment criteria of approval:
1. Consistency with applicable Metro Plan policies and the Metro Plan diagram;
Applicant’s Narrative: “Consistency with applicable Metro Plan policies and diagram are
incorporated by reference herein (see Section 4.1 Metro Plan Amendment Approval Criteria).”
Finding 1: Metro Plan Policy H.1, Page III-H-4 states: “Develop a system of regional-metropolitan
recreational activity areas based on a facilities plan for the metropolitan area that includes
acquisition, development, and management programs. The Metro Plan and system should include
reservoir and hill parks, the Willamette River Greenway, and other river corridors.”
Finding 2: Metro Plan Policy H.2, Page III-H-4 states: “Local parks and recreation plans and
analyses shall be prepared by each jurisdiction and coordinated on a metropolitan level. The park
standards adopted by the applicable city and incorporated into the city’s development code shall be
used in local development processes.”
Finding 3: Metro Plan Policy H.6, Page III-H-4 states: “All metropolitan area parks and recreation
programs and districts shall cooperate to the greatest possible extent in the acquisition of public and
private funds to support their operations.”
Finding 4: Metro Plan Chapter IV, Policy 7.a states: “A property owner may initiate a [Type I
Metro Plan diagram] amendment for property they own at any time. Owner initiated amendments
are subject to the limitations for such amendments set out in the development code of the home
city.”
Finding 5: The property owner (a public agency) initiated a concurrent Metro Plan Diagram
amendment in accordance with provisions of SDC 5.14-100 (Case TYP417-00001). Upon adoption
of the amending Ordinance, the Metro Plan Diagram would be amended and the requested zone
change from LDR and LMI to PLO would be consistent with the provisions of the adopted
Comprehensive Plan. Prior or concurrent amendment of the Metro Plan Diagram will be required
for the subject zone change request to be approved.
Finding 6: The proposed zone change is consistent with provisions of the Metro Plan whereby
zoning can be monitored and adjusted as necessary to meet current urban land use demands. The
requested change from LDR and LMI to PLO would allow for development of the Thurston Hills
Natural Area Park, which is identified as Project 3.9 in the adopted Willamalane Comprehensive
Plan, a plan which was adopted by the Springfield City Council on November 4, 2013 (Ord. No.
6303).
Finding 7: The subject property abuts properties that are zoned and designated for LDR land use
along the western and northwestern boundaries. The proposed Zone Change is consistent and
compatible with the adjoining zoning and the existing uses in the area. A Site Plan was previously
approved for a trailhead parking lot off the McKenzie Highway pursuant to Case TYP216-00037.
Further development of the planned trail system and related facilities within the Thurston Hills
Natural Area Park will be subject to the Site Plan Review process, which includes the provision for
public notification and comment. The proposed natural area park would provide a significantly less-
Attachment 2, Page 3 of 8
intensive use and a transition area between residential neighborhoods in the southeast Thurston Hills
and managed forest land outside the City’s UGB to the southeast.
Recommended Condition of Approval: Prior to or concurrent with approval of the Zone
Change request, the Metro Plan Diagram shall be amended as initiated by Planning Action
TYP416-00003.
2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development
Plans and functional plans;
Applicant’s Narrative: “The site is not within an area subject to an adopted refinement plan. This
criterion does not apply.”
Finding 8: There are no adopted neighborhood Refinement Plans or Conceptual Development Plans
for this area of Springfield. Therefore, the Metro Plan diagram remains the prevailing land use plan
diagram for this site.
Finding 9: The City previously adopted the Residential Land Use and Housing Element of the
Springfield 2030 Refinement Plan. The subject property was identified as low density residential
inventory in the 2030 Plan because of its LDR zoning and designation, and its location within the
City’s UGB. Much of the property is identified as being constrained by steep slopes and, in certain
areas, by potentially unstable hillsides.
Finding 10: The Residential Land Use and Housing Element (Table 6-7) identifies approximately
378 acres of surplus LDR designated land within the City’s buildable land inventory. About seven
acres of LDR was removed from the inventory upon adoption of Ordinance 6364 on March 7, 2017.
Therefore, a surplus of about 370 acres of buildable LDR designated land currently remains. The
proposed rezoning would remove about 421 acres of LDR zoned land from the City’s inventory, of
which about 159 acres is considered “buildable”. The proposed rezoning will significantly reduce
the amount of surplus LDR designated land within the City’s inventory, but it will not be reduced
below a critical threshold level requiring mitigation.
Finding 11: The applicant is proposing to rezone approximately 10.7 acres of land within
Assessor’s Map 18-02-09-00, Tax Lot 100 from Light Medium Industrial (LMI) to Public Land and
Open Space (PLO). Staff observes that the subject property is designated LDR on the Metro Plan
diagram and therefore a plan-zone conflict exists. The plan-zone conflict would be resolved upon
rezoning of the subject property to PLO. Because the subject property was tabulated as part of the
surplus LDR-designated land, the proposed rezoning does not affect the City’s Commercial and
Industrial Buildable Land inventory.
3. The property is presently provided with adequate public facilities, services and transportation
networks to support the use, or these facilities, services and transportation networks are
planned to be provided concurrently with the development of the property.
Applicant’s Narrative: “As demonstrated by the preceding findings under the first criterion of
approval, incorporated by reference herein, the proposed site is within Springfield city limits and is
thus within an area that receives public services. Services within the vicinity of the subject site
include:
Attachment 2, Page 4 of 8
Water Service
Springfield Utility Board (SUB) has a 12-inch DIP water line that runs east-west along the north
side of Main Street. The residual pressure in the area is 35.3 psi and the rate of flow is 1,500
gallons per minute. The water line has capacity to serve the subject site.
Wastewater Service
The Crossway Estates Development project installed an 8-inch PVC gravity sewer main that runs
northerly along the alignment of 75th Street beginning approximately 100 feet north of the Center
intersection of 75th Street and Main Street. The southern terminus of the existing sewer line is
located approximately 120 feet west and 160 feet north of Tax Lot 03602 and is the nearest
connection point.
Stormwater Service
There are three different facilities serving parcels in the vicinity of the subject site:
A 24-inch concrete stormwater main which runs westerly along the south side of Main
Street beginning approximately 800 feet west of Tax Lot 3602. Stormwater runoff from
Tax Lot 3602 is currently conveyed to this system via roadside ditches.
A 12-inch RCCP storm sewer pipe installed during the Crossway Estates Development
project that runs northerly along the west side of 75th Street located approximately 15 feet
northwest of the above mentioned 8-inch PVC gravity sewer main. The southern terminus
of the 12-inch RCCP storm sewer pipe is approximately 130 feet west and 175 feet north of
Tax Lot 3602.
The northerly flowing, 75th Street Creek crosses Main Street via a 32-inch diameter
concrete culvert approximately 110 feet east of Tax Lot 3602. This may serve as a
discharge point for runoff treated on-site.
Electrical Service
The Springfield Utility Board (SUB) provides electric services within the City of Springfield’s city
limits under the authority of the Springfield City Charter. SUB has overhead three-phase primary
power lines along the north side of Main Street and a single-phase service to feed the subject site.
Transportation
Springfield’s 2035 Transportation System Plan (TSP) identifies two potential future roadway
projects in the vicinity of the subject site: R-45 and R-46. R-45 focuses on improvements within the
Jasper-Natron area, and involves constructing multiple roadways between Bob Straub Parkway,
Jasper Road, and Mt. Vernon Road. R-46 addresses Bob Straub Parkway to Mountaingate Drive
and involves a new collector with a three-lane cross-section with sidewalks and bicycle facilities.
The Springfield Conceptual Local Street Map shows several future local streets in the vicinity of the
subject site. These future streets include an extension of a private road off of Weyerhauser Road, a
connection between Mountaingate Drive and 66th Street, and extensions and connections of Jessica
Street and 69th Street. Planned connections are also anticipated between Daisy Street, Glacier
Street, and 79th Street. Language included in Recital 16 of the MOU between Willamalane and City
regarding the Thurston Hills Natural Area addresses future roadway and street projects. This
language is included for reference:
16. Portions of the area included by Willamalane in the Thurston Hills Natural Area Park
are identified for possible future roadway extensions in the City’s adopted Conceptual
Street Map. City acknowledges that all extensions depicted on the Conceptual Street
Map may not be needed given that the Willamalane-owned property will not be
Attachment 2, Page 5 of 8
developed for residential uses, but that an access for the connectivity and/or public
safety purposes may be required as a condition of approval through the Metro Plan
amendment and zone change process.
The annexation agreement between Willamalane and the City resulting from a separate request for
Annexation application approval of Map 17-02-35-00 Lot 03602 will address future street
extensions. Based on the preceding findings, the subject site is provided with adequate public
facilities, services, and transportation networks.”
Finding 12: The property requested for Zone Change has frontage on McKenzie Highway along the
northern boundary and Weyerhaeuser Road along the southwestern boundary. With the exception
of the planned trailhead parking lot that is accessed from McKenzie Highway, no buildings or
facilities requiring urban services are planned for the natural area park. The applicant has executed
an Annexation Agreement with the City which provides for the future extension of urban utilities to
serve the trailhead parking lot and adjacent properties. Future development of the natural area park
Public Land and Open Space uses will be subject to the Site Plan Review process as outlined in
Section 5.17-100 of the City’s Development Code.
4. Legislative Zoning Map amendments that involve a Metro Plan Diagram amendment shall:
a. Meet the approval criteria specified in Section 5.14-100; and
Applicant’s Narrative: “Consistency with applicable Statewide Planning Goals are
incorporated by reference herein (see Section 4.1 Metro Plan Amendment Approval
Criteria) [Staff report for Case TYP417-00001]. Consistency with applicable Metro Plan
policies and diagram are incorporated by reference herein (see Section 4.1 Metro Plan
Approval Criteria). The application does not alter the basic assumptions of the Metro Plan
or make it internally inconsistent. The Springfield Comprehensive Plan is represented
through the Metro Plan. All criteria for the Metro Plan have been met.”
Finding 13: The applicant has submitted a concurrent Metro Plan Diagram amendment
application (Case TYP417-00001) under separate cover. The applicant’s submittal
materials, narrative, and staff findings and recommendations demonstrate compliance with
the Metro Plan amendment provisions of Chapter IV of the Metro Plan and SDC 5.14-135.
b. Comply with Oregon Administrative Rule (OAR) 660-012-0060, where applicable.
Applicant’s Narrative: “Based on the Transportation Planning Rule (TPR) analysis
conducted by Branch Engineering, included as Exhibit D and incorporated by reference
herein, OAR 660-012-0060(1) is satisfied, as the proposed Amendments will result in a de-
intensification of use. The PM peak hour and average daily trip (ADT) generation
associated with the proposed use is a reduction in the potential that would be generated by
the site if it were developed under land use permissions associated with the existing zoning
and Metro Plan designations. For the residential portion of the site, existing development
potential is calculated with a build-out of single-family detached dwelling units as allowed
by SDC 3.2-200. The site is determined to be capable of supporting approximately 1,591
detached dwelling units assuming the existing Low Density Residential Metro Plan
designation is applicable to the entire estimated buildable area of 159.08 acres. With this
number of units, under the existing LDR zoning designation the PM peak hour trips would be
1,594 trips, including trips generated by the LMI zone. Under the existing Metro Plan
Attachment 2, Page 6 of 8
designation, the PM peak hour trips would be 1,591 trips. Conversely, under the proposed
zoning and Metro Plan designation (Public Land and Open Space), PM peak hour trips
would equate to only 88 trips. In terms of ADT, under the existing LDR and LMI zones, ADT
would be 14,974 trips. Under the existing Metro Plan designation, the ADT would be
15,146 trips. Conversely, under the proposed zoning and Metro Plan designation, the ADT
would equate to only 2,022 trips. Both the PM peak hour and ADT trip generation scenarios
with the Amendments are based on the site’s gross area within the UGB. Much of the land
will remain as open space and will continue to be relatively inaccessible pending the land
use applications’ approval. The proposal to change the zoning and Metro Plan permitted
use designations on the site would significantly reduce the site’s trip generation potential of
the land, and the trip generation levels associated with the reasonable worst case
development scenario of the proposed conditions were not found to have an identifiable
“significant affect” defined by OAR 660-012-0060(1). The City may waive the requirement
for traffic impact and parking studies for the potential park use on the site required by SDC
4.7-200B.4 and SDC 4.6-125F based on the potential trip generation of less than 100 PM
peak hour trips, which is the lower threshold for the number of peak hour trips generated by
a site to determine if a traffic impact analysis is required. In summary, the TPR is satisfied
under Goal 12 criteria with the proposed zone change from LDR and LMI districts to the
POS district and proposed Metro Plan designation change from Low Density Residential to
Parks and Open Space designation, as it was shown that the change in use would not have a
significant affect to a transportation facility as identified in OAR 660-012-0060(1).”
Finding 14: The requested Zone Change is being undertaken as a site-specific change in
compliance with provisions of the adopted Metro Plan and the City’s Development Code.
The applicant has initiated an amendment to the Metro Plan Diagram to change the
designation from LDR to PLO. Oregon Administrative Rules (OAR) 660-012-0060 requires
that, “if an amendment to a functional plan, an acknowledged comprehensive plan, or a land
use regulation (including a zoning map), would significantly affect an existing or planned
transportation facility, then the local government must put in place measures” to mitigate the
impact, as defined in OAR 660-012-0060(2). The applicant has submitted a supporting
Transportation Planning Rule (TPR) analysis for the proposed Metro Plan Diagram
amendment and Zone Change (Attachment 3, Exhibit D) that has been reviewed by staff.
Based on the findings of the applicant’s TPR analysis there will be a de-intensification of use
on the property and a significant reduction in associated vehicle trips. The applicant’s TPR
analysis has determined that the proposed Metro Plan Diagram amendment and Zone
Change will not have a significant effect on existing or planned transportation facilities, and
staff concurs with these findings.
Conclusion: Based on the above-listed criteria, staff recommends support for the request subject to the
conditions below:
Conditions of Approval
SDC Section 5.22-120 allows for the Approval Authority to attach conditions of approval to a Zone
Change request to ensure the application fully meets the criteria of approval. The specific language from
the code section is cited below:
5.22-120 CONDITIONS
The Approval Authority may attach conditions as may be reasonably necessary in order to allow
the Zoning Map amendment to be granted.
Attachment 2, Page 7 of 8
Staff advises that the Zone Change request was initiated in accordance with provisions of the City’s
Development Code. The proposal was found to be generally consistent with the criteria of approval;
however, because the applicant has initiated a concurrent Metro Plan Diagram amendment (Case
TYP417-00001), the comprehensive plan amendment will need to be completed prior to or concurrent
with approval of the Zone Change. Further, the City Council will be reviewing both land use applications
at a public hearing meeting on September 18, 2017. Staff recommends the following condition of
approval:
Recommended Condition of Approval: Prior to or concurrent with approval of the Zone Change
request, the Metro Plan Diagram shall be amended as initiated by Planning Action TYP417-00001.
The Planning Commission may choose to apply other conditions of approval as necessary to comply with
the Zone Change criteria or as further demonstrated by testimony and evidence entered into the record of
the hearing.
Additional Approvals
The subject application will facilitate review of future land use applications for the affected parcel. Any
future site development, including but not limited to grading, paving, or new construction on the property,
will be subject to the provisions of the SDC for the applicable zoning district.
Attachment 2, Page 8 of 8
Cameron McCarthy
Landscape Architecture & Planning
160 East Broadway, Eugene, OR 97401
Phone 541.485.7385 | Fax 541.485.7389
www.cameronmccarthy.com
CITY OF SPRINGFIELD
METRO PLAN AMENDMENT & ZONING MAP
AMENDMENT APPLICATION
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
December 23, 2016
Attachment 3, Page 1 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 INDEX
This page is intentionally left blank.
Attachment 3, Page 2 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 INDEX
INDEX
LAND USE PERMIT APPLICATION FORMS
§ Metro Plan Amendment
§ Zoning Map Amendment
WRITTEN STATEMENT
1.0 Project Information ........................................................................................................... 1
2.0 Description of Proposal .................................................................................................... 4
3.0 Submittal Requirements ................................................................................................. 10
4.0 Approval Criteria and Standards ................................................................................... 13
EXHIBITS
A Vicinity Map ....................................................................................................................... A
B Existing and Proposed Plan Designations ...................................................................... B
C Existing and Proposed Zoning Designations ................................................................. C
D Transporation Rule Analysis Technical Memorandum .................................................. D
E Deeds .................................................................................................................................. E
F Thurston Hills Natural Area Park MOU ............................................................................ F
Attachment 3, Page 3 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 INDEX
This page intentionally left blank.
Attachment 3, Page 4 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 1
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT
APPLICATION
Written Statement
1.0 PROJECT INFORMATION
Applicant’s Request: The applicant, Willamalane Park and Recreation District
(WPRD), requests concurrent Metro Plan Amendment and
Zoning Map Amendment application approval to change the
plan and zone designations of the properties that comprise
Thurston Hills Natural Area (THNA) Park from residential to
parks and open space.
Property Owner: Assessor’s Map 17-02-35-00
Tax Lot 03602
Willamalane Park and Recreation District
250 S. 32nd St.
Springfield, OR 97478
City of Springfield
225 5th Street
Springfield, OR 97477
Assessor’s Map 17-02-35-00
Tax Lots 03500, 03604
Willamalane Park and Recreation District
250 S. 32nd St.
Springfield, OR 97478
Assessor’s Map 18-02-02-00
Tax Lots 00100, 00400, 00401
Willamalane Park and Recreation District
250 S. 32nd St.
Springfield, OR 97478
Assessor’s Map 18-02-03-00
Tax Lots 00600, 00602
Willamalane Park and Recreation District
250 S. 32nd St.
Springfield, OR 97478
Attachment 3, Page 5 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 2
Applicant: Eric Wold, CPRE
Assistant Superintendent – Parks and Facilities
Willamalane Park and Recreation District
250 South 32nd Street
Springfield, OR 97478
541.736.4015
ericw@willamalane.org
Applicant’s Representative: Colin McArthur, AICP
Principal Planner
Cameron McCarthy
160 E. Broadway, Eugene OR 97401
541.485.7385
colin@cameronmccarthy.com
Project Name: Thurston Hills Natural Area Park
Subject Property: Assessor’s Map 17-02-35-00
Tax Lots 03500, 03602, 03604
Assessor’s Map 18-02-02-00
Tax Lots 00100, 00400, 0040
Assessor’s Map 18-02-03-00
Tax Lots 00600, 00602
Location: Assessor’s Map 17-02-35-00
Tax Lot 03500
No site address is associated with this tax lot.
Geographic Coordinates:
X 4292999 Y 876309 (State Plane X, Y)
Latitude: 44.0465° Longitude: -122.8897°
Tax Lot 03602
7575 McKenzie HWY Springfield, OR 97478-8697
Geographic Coordinates:
X 4292746 Y 876206 (State Plane X, Y)
Latitude: 44.0462° Longitude: - -122.8906°
Tax Lot 03604
No site address is associated with this tax lot.
Geographic Coordinates:
X 4293144 Y 874849 (State Plane X, Y)
Latitude: 44.0425° Longitude: -122.8890°
Assessor’s Map 18-02-02-00
Tax Lot 00100
No site address is associated with this tax lot.
Geographic Coordinates:
Attachment 3, Page 6 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 3
X 4292648 Y 872484 (State Plane X, Y)
Latitude: 44.0360° Longitude: -122.8906°
Tax Lot 00400
No site address is associated with this tax lot.
Geographic Coordinates:
X 4289138 Y 870376 (State Plane X, Y)
Latitude: 44.0299° Longitude: -122.9037°
Tax Lot 00401
No site address is associated with this tax lot.
Geographic Coordinates:
X 4289322 Y 871207 (State Plane X, Y)
Latitude: 44.0322° Longitude: -122.9031°
Assessor’s Map 18-02-03-00
Tax Lot 00600
No site address is associated with this tax lot.
Geographic Coordinates:
X 4286488 Y 870238 (State Plane X, Y)
Latitude: 44.0293° Longitude: -122.9138°
Tax Lot 00602
No site address is associated with this tax lot.
Geographic Coordinates:
X 4285487 Y 870451 (State Plane X, Y)
Latitude: 44.0298° Longitude: -122.9176°
Property Size: 428.95 acres; see Table 2-1, herein.
Plan Designation: Multiple designations; see Table 2-1
Plan Overlay Designation: None
Zone Designation: Multiple designations; see Table 2-1
Zone Overlay Designation: Urbanizable Fringe (/UF-10)
Floodplain (/FP)
Drinking Water Protection (/DWP)
Attachment 3, Page 7 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 4
2.0 DESCRIPTION OF PROPOSAL
2.1 Overview
Willamalane Park and Recreation District (WPRD), the “applicant,” requests Metro Plan
Amendment and Zoning Map Amendment application approval to change the plan and zone
designations of the properties that comprise Thurston Hills Natural Area (THNA) Park from Low
Density Residential to Parks and Open Space. In 2013, the City of Springfield adopted the 2012
Willamalane Parks and Recreation Comprehensive Plan, which identifies future needs for parks,
natural areas, recreation facilities, programs, and services. The Plan includes specific actions
directed toward addressing future needs and ensuring the most effective use of community
resources. One such specific action included in the Plan is the acquisition and development a
natural area park in the Thurston Hills area.
This application is a request for Metro Plan Amendment and Zoning Map Amendment approval.
2.2 Background
In 2014, Willamalane acquired 665 acres of property in the Thurston Hills area for the natural area
park. Approximately 435 acres of the total acreage is within Springfield’s Urban Growth Boundary
but outside the existing city limits. The District is also in discussions with landowners to acquire
more property along the ridgeline. These land investments will enable Willamalane to preserve
views, wildlife habitat and sensitive natural areas; and provide walking, hiking and mountain biking
opportunities.
Willamalane has been making progress toward the realization of THNA Park through multiple
initiatives:
§ Both the 2004 and 2012 Willamalane Comprehensive Plans include strategies to acquire
and develop property for a natural area park and trails in the Thurston Hills area.
§ In 2012, Springfield voters approved a Willamalane capital bond package, which included
funds identified for acquisition and improvements of a natural area park in the Thurston
Hills area.
§ In 2016, Willamalane and the City executed a Memorandum of Understanding (MOU)
regarding the development of THNA Park.
In 2012, Springfield-area voters approved Measure 20-199, a $20 million Willamalane Park and
Recreation District Bond to fund projects aimed at expanding trails and preserving parkland
around hillsides, rivers, and streams. The bond measure included funding for the THNA project
and represents public support for acquisition and development of THNA Park.
Items C, D, and E of the terms and conditions in the MOU between Willamalane and the City
specifically address this application:
C. Prior to seeking any further development approval in the Thurston Hills Natural Area Park for
park improvements not approved as part of the Site Plan Review application for trailhead
improvements, including but not limited to, trails additional trailheads, and tree removal,
Willamalane will submit applications to amend the Metro Plan diagram and the Springfield
zoning map for all property owned by Willamalane that is or may be become part of the
Attachment 3, Page 8 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 5
Thurston Hills Natural Area Park within Springfield’s urban growth boundary to the Metro
Plan Parks and Open Space (POS) plan designation and to the City’s Public Land & Open
Space (PLO) zoning district.
D. Willamalane and the City agree on timing of submittal of said Metro Plan diagram and
zoning map amendment applications, with initial submittal within two years of the effective
date of this MOU. City code standards allow for concurrent submittal of land use
applications. Willamalane wishes to submit concurrently applications for annexation of the
trailhead area and for the required Plan/zoning map amendments.
E. Until the Metro Plan amendments referenced herein are approved, Willamalane will not
improve or develop any portions of the properties comprising Thurston Hills Natural Area
Park other than the trailhead improvements identified in the Tentative Site Plan Review
application.
Willamalane has not sought any further development approval in THNA Park. Willamalane
received Tentative Site Plan Review approval for the trailhead and associated improvements on
September 16, 2016 (TYP216-00037). The effective date of the MOU is August 5, 2016 and, per
item D, the initial submittal of Metro Plan diagram and zoning map amendment applications must
occur prior to August 5, 2018.
This application is a concurrent request for Metro Plan Amendment and Zoning Map Amendment
approval for all properties that comprise THNA Park.
2.3 Location & Context
THNA Park is located in the southeast portion of Springfield’s Urban Growth Boundary (UGB) and
is 665.81 acres in size. THNA Park is comprised of 10 tax lots; 6 tax lots are located entirely with
Springfield’s UGB and land use jurisdiction; and four tax lot are bisected by the UGB and are
jointly within Springfield and Lane County land use jurisdiction. Within Springfield’s jurisdiction, all
of the tax lots are located outside the city limits boundary. Willamalane owns nine of the 10 tax
lots outright. One tax lot, Map 17-02-35-00 Lot 03602, is jointly owned by Willamalane and the
City of Springfield.
Within Springfield jurisdiction the subject tax lots are designated Low Density Residential by the
Metro Plan and Low Density Residential (LDR) by the Springfield zoning map. One tax lot, Map
18-02-09-00 Lot 00100, is split designated LDR and Light-Medium Industrial (LMI). The tax lots
are within the Urbanizable Fringe (/UF-10), Floodplain (/FP), and Drinking Water Protection (/DWP)
overlay districts. Of the total 665.81 acres that comprise THNA Park, 421.15 acres are within
Springfield jurisdiction. See Table 2-1 THNA Tax Lots within Springfield.
Within Lane County jurisdiction, the subject tax lots are designated Forest by the Metro Plan and
Forest (F1) and Forest (F2) by the Lane County zoning map. Of the total 665.81 acres that
comprise THNA Park, 244.83 acres are within Springfield jurisdiction. See Table 2-2 THNA Tax
Lots within Lane County.
Attachment 3, Page 9 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 6
Table 2-1. THNA Tax Lots within Springfield
MAP TAX
LOT PLAN DESIGNATION ZONING DESIGNATION ACRES
17-02-35-00 03500 Low Density
Residential Low Density Residential (LDR) 1.01
17-02-35-00 03602 Low Density
Residential Low Density Residential (LDR) 3.03
17-02-35-00 03604 Low Density
Residential Low Density Residential (LDR) 41.41
18-02-02-00 00100 Low Density
Residential Low Density Residential (LDR) 125.25
18-02-02-00 00400 Low Density
Residential Low Density Residential (LDR) 13.30
18-02-02-00 00401 Low Density
Residential Low Density Residential (LDR) 101.60
18-02-03-00 00600 Low Density
Residential Low Density Residential (LDR) 79.50
18-02-03-00 00602 Low Density
Residential Low Density Residential (LDR) 27.60
18-02-09-00 00100 Low Density
Residential
Low Density Residential (LDR)
Light-Medium Industrial (LMI) 10.71
18-02-10-00 00100 Low Density
Residential Low Density Residential (LDR) 17.74
TOTAL 421.15
Table 2-2. THNA Tax Lots within Lane County
MAP TAX
LOT PLAN DESIGNATION ZONING DESIGNATION ACRES
18-02-02-00 00100 Forest Forest (F1) 4.66
18-02-02-00 00400 Forest Forest (F2) 31.76
18-02-09-00 00100 Forest Forest (F2) 19.65
18-02-10-00 00100 Forest Forest (F2) 188.76
TOTAL 244.83
Attachment 3, Page 10 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 7
As shown on Exhibit A Vicinity Map, THNA Park is adjacent to residential development and the
Weyerhaeuser Haul Road to the west; BLM-owned forestland to the east and south; and, Main
Street/McKenzie Highway to the north. The site is accessible by the Weyerhaeuser Haul Road and
Main Street/McKenzie Highway. However, there are no developed streets or roads within THNA
Park.
Springfield’s 2035 Transportation System Plan (TSP) identifies two potential future roadway
projects in the vicinity of the subject site: R-45 and R-46. R-45 focuses on improvements within
the Jasper-Natron area, and involves constructing multiple roadways between Bob Straub
Parkway, Jasper Road, and Mt. Vernon Road. R-46 addresses Bob Straub Parkway to
Mountaingate Drive and involves a new collector with a three-lane cross-section with sidewalks
and bicycle facilities.
The Springfield Conceptual Local Street Map shows several future local streets in the vicinity of
the subject site. These future streets include an extension of a private road off of Weyerhauser
Road, a connection between Mountaingate Drive and 66th Street, and extensions and connections
of Jessica Street and 69th Street. Planned connections are also anticipated between Daisy Street,
Glacier Street, and 79th Street.
Language included in Recital 16 of the MOU between Willamalane and City regarding the Thurston
Hills Natural Area addresses future roadway and street projects. This language is included for
reference:
16. Portions of the area included by Willamalane in the Thurston Hills Natural Area Park are
identified for possible future roadway extensions in the City’s adopted Conceptual Street
Map. City acknowledges that all extensions depicted on the Conceptual Street Map may
not be needed given that the Willamalane-owned property will not be developed for
residential uses, but that an access for the connectivity and/or public safety purposes may
be required as a condition of approval through the Metro Plan amendment and zone
change process.
The annexation agreement between Willamalane and the City resulting from a separate request for
Annexation application approval of Map 17-02-35-00 Lot 03602 will address future street
extensions.
The aforementioned property is known as the historic Gray homestead and is developed with a
gravel drive extending from Main Street/McKenzie Highway to a residential dwelling and two
accessory structures. The dwelling, identified as the Heritage House, is used by Willamalane for
special events. Several mature trees surround the Heritage house. The remainder of the property
is undeveloped.
Willamalane received a grant from the U.S. forest service for the preparation of a community forest
plan for a 78.97-acre tract of land in the northern portion of THNA Park. The overarching goal of
the community forest is to maintain a large tract of productive forestland adjacent to an urban area
and introduce public access, recreation, environmental education, and best practices for sustained
stewardship. There are four primary vegetation communities within the Park: prairie-savanna,
mixed oak-conifer forest, mixed oak-conifer woodland, and mixed conifer-hardwood. The natural
area also has numerous invasive species, but no federally listed rare plant species have been
found within the boundaries of the park.
Attachment 3, Page 11 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 8
2.4 Purpose and Need
Metro Plan Amendment and Zoning Map Amendment application approval is required in order to
change all property within THNA Park to the Metro Plan Parks and Open Space plan designation
and to the City of Springfield Public Land & Open Space (PLO) zoning district. The 2012
Willamalane Comprehensive Plan classifies THNA Park as a Natural Area Park according to the
following definition:
Natural Area Park: Area managed for both recreational use and natural values. Provides
opportunities for nature-based recreation, such as wildlife viewing, hiking, jogging,
bicycling, and nature photography.
SDC Table 3.2-210 Schedule of Use Categories within the Low Density Residential zone permits
only neighborhood and private parks in accordance with the following definitions:
Neighborhood Park: A park, traditionally from 5 acres to 15 acres in size, which provides
easily accessible recreation areas serving neighborhood citizens and providing high density
active or passive use.
Private Park: A park available for public use owned by a non-public agency or private
individual.
The park uses are permitted subject to Type III Discretionary Use and Type II Site Plan Review
procedures. The SDC does not contain a Natural Area Park use definition. However, the
proposed use is consistent with the definition of a Regional Park in SDC 6.1-110, as follows:
A large area of natural quality for outdoor recreation for example, swimming, boating,
camping and picnicking, and for wildlife habitat and natural resource conservation.
Generally comprising 100 acres or more, where 80 percent of the land is reserved for
natural open space and 20 percent is used for recreation development.
At 665.81 acres in size, the proposed THNA Park is well over 100 acres and the majority is planned
to be reserved for natural open space and outdoor recreation, wildlife habitat, and natural resource
conservation uses. Regional Parks are not permitted in the LDR zoning district. Regional Parks
are permitted in the Public Land & Open Space (POS) in accordance with SDC Table 3.2-710
Schedule of Use Categories subject to special development standards as specified in SDC 4.7-
100.
WPRD proposes the development of THNA Park as a Regional Park, which is not permitted in the
existing LDR zoning district that applies to the subject tax lots. Therefore, Metro Plan Amendment
and Zoning Map Amendment application approval is required to change the underlying plan
designations from Low Density Residential to Parks and Open Space zone designations from LDR
and LMI to POS. The proposed park, the first of its kind in the Springfield area, will provide local
outdoor recreation opportunities, as well as wildlife habitat and natural resource conservation.
2.5 Land Use Requirements
As noted previously, Metro Plan designations for the subject site include ten tax lots designated
Low Density Residential. Springfield zoning designations for the subject site include nine tax lots
Attachment 3, Page 12 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 9
designated LDR and one tax lots split designated LDR and LMI. The tax lots are within the
Urbanizable Fringe (/UF-10), Floodplain (/FP), and Drinking Water Protection (/DWP) overlay
districts. This proposal requests concurrent Metro Plan Amendment and Zoning Map Amendment
application approval for all 10 properties that comprise THNA Park to enable development as a
Regional Park. The following actions are necessary:
§ Type II Metro Plan Amendment pursuant to SC 5.14-135 to change the plan designations
of all subject tax lots as listed in Table 2-1 from Low Density Residential to Parks and Open
Space.
§ Type III Zoning Map Amendment pursuant to SC 5.22-115 to change the zoning
designations of all subject tax lots as listed in Table 2-1 from LDR and LMI to POS.
The proposed Zoning Map Amendment does not affect the /UF-10, /FP, and /DWP overlay district
designations and those designations will be retained following application approval.
The request requires a demonstration of consistency with the Metro Plan, as well as with
refinement plans, and other functional plans such as the Residential Housing Land Needs
Assessment (RHLNA). Since Metro Plan Amendment and Zoning Map Amendment approval
propose to re-designate land from the residential district, the proposal involves an analysis of the
RHLNA to demonstrate that an adequate supply of buildable residential land is available following
application approval. The RHLNA database was obtained from the City of Springfield and
reviewed in order to isolate properties associated with THNA Park that were included in the
analysis and are within Springfield jurisdiction. The analysis determined that 159.08 acres within
TNNA Park are accounted for in the RHLNA as residential buildable acres. Removal of the
residential buildable acres from Springfield’s housing inventory will result in a remaining surplus of
more than 300 acres of residential buildable acres. Thus, the proposal demonstrates consistently
with this functional plan.
Findings demonstrating consistency with applicable policies and approval criteria specific to the
Metro Plan Amendment and Zoning Map Amendment request are provided in Section 4 Approval
Criteria. The attached materials and enclosed findings demonstrate compliance with all Metro
Plan Amendment and Zoning Map Amendment application submittal requirements and criteria
listed in SDC Sections:
§ 5.14-100 Metro Plan Amendment; and
§ 5.22-100 Zoning Map Amendment.
Attachment 3, Page 13 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 10
3.0 SUBMITTAL REQUIREMENTS
Described below are each of the procedural and informational requirements necessary for the
submittal of a request for Metro Plan Amendment and Zoning Map Amendment application
approval. Findings of compliance with applicable policies and approval criteria are provided in
Section 4 Approval Criteria.
3.1 Metro Plan Amendment Submittal Requirements
.1 A complete application page.
The completed application page is included with the initial submittal
.2 A statement containing Findings of Fact addressing the Criteria of Approval
found in Springfield Development Code (SDC) 7.070(3). The Findings of Fact
must show reason for the request consistent with the Criteria of Approval
(shown below).
The application must include requirements for addressing specific statewide
goals that the Oregon legislature has said must be part of the analysis. In
particular, Statewide Planning Goal 9 Economy and Goal 10 Housing must be
addressed for impact on buildable lands inventories, and a Goal 12
Transportation analysis must address criteria contained in OAR 660-012-060(1)
and (2) of the Transportation Planning Rule (TPR). Goals 9, 10 and 12 are three
of several "Applicable State-Wide Planning Goals" that must be specifically
addressed in criteria (a) of the Springfield Development Code (SDC) 7.070(3).
These specific items must be included in the application submittal to be
considered a complete application.
In reaching a decision on these actions, the Planning Commission and the City
Council shall adopt findings that demonstrate conformance to the following
Criteria of Approval (SDC 7.070(3)):
a. The Amendment must be consistent with the relevant statewide
planning goals adopted by the Land Conservation and Development
Commission and;
b. Adoption of the Amendment must not make the Metro Plan internally
inconsistent.
Findings of Fact that establish the consistency of the request with the applicable approval criteria
and corresponding development standards are provided in Section 4.
.3 A map to scale depicting the existing and proposed diagram change. (If
applicable)
Maps to scale depicting the existing and proposed diagram change are provided as Exhibits B and
C.
Attachment 3, Page 14 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 11
.4 The application fee. Refer to the Development Code Fee Schedule for the
appropriate fee. A copy of the Fee Schedule is available at the Development
Services Department.
The required filing fee of $45,066.00 is enclosed with the submittal.
3.2 Zoning Map Amendment Submittal Requirements
Below are each of the required requirements necessary for the submittal of a Zoning Map
Amendment request. Findings of compliance with applicable policies, approval criteria, and
provisions are provided in Section 4 Approval Criteria.
.1 The application fee. Refer to the Development Code Fee Schedule for the
appropriate application and postage fee. A copy of the Fee Schedule is
available at the Development Services Department.
The required filing fee of $45,066.00 is enclosed with the submittal.
.2 Deed - A copy of the deed to show ownership.
A copy of the Deed is included as Exhibit E.
.3 Vicinity Map – A map of the property and the surrounding vicinity which
includes the existing zoning and plan designations. One copy must be
reduced to 8 ½” by 11” which will be mailed as part of the required
neighboring property notification packet.
The Vicinity Map for the request is provided as Exhibit A and is printed as 8.5” by 11”.
.4 Findings - Before the Planning Commission can approve a Zone/Overlay
District Change Request, there must be information submitted by the applicant
which adequately supports the request. The Criteria the Planning Commission
will consider in making their decision is listed below. If insufficient or unclear
data is submitted by the applicant, there is a good change that the request will
be denied or delayed. It is recommended that you hire a professional planner
or land use attorney to prepare your findings.
Criteria of Approval (Quasi-judicial)
SDC 12.030 requires that in reaching a decision on these actions, the
Planning Commission or Hearings Official map approve, approve with
conditions or deny a quasi-judicial Zoning Map Amendment based upon
approval criteria (a)-(c), below.
a. Consistency with the Metro Plan policies and the Metro Plan Diagram;
b. Consistency with applicable Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans; and
Attachment 3, Page 15 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 12
c. The property is presently provided with adequate public facilities,
services and transportation networks to support the use, or these
facilities, services and transportation networks are planned to be
provided concurrently with the development of the property.
The preceding written narrative explains the request and includes information relevant to
determining future action. Findings of compliance with applicable approval criteria and standards
are provided in Section 4 Approval Criteria and Standards.
Attachment 3, Page 16 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 13
4.0 APPROVAL CRITERIA AND STANDARDS
The purpose of the proposal is to request approval of a concurrent Metro Plan Amendment and
Zoning Map Amendment application to enable acquisition and development of the Thurston Hills
Natural Area. Due to the definition conflict between the Thurston Hills Natural Area with parks
normally permitted with Low-Density Residential uses, changing the zoning and designation of the
site parcels to Parks and Open Space are imperative to execute the project.
Findings of compliance that establish the consistency of these actions with the applicable
approval criteria and standards are provided below.
4.1 SDC 5.14-135 Metro Plan Amendment Approval Criteria
The purpose of the Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is to serve as
a long-range public policy document that establishes the broad framework upon which Springfield,
Eugene and Lane County make coordinated land use decisions.
Review of a Metro Plan Amendment requires several key steps that are addressed below:
A. A Development Issues Meeting is encouraged for citizen initiated amendment
applications.
The applicant has coordinated extensively with the City of Springfield and has executed an MOU
regarding development of THNA Park (Exhibit F). Items C, D, and E of the terms and conditions in
the MOU between Willamalane and the City specifically address this application. The application
is initiated by a public agency, Willamalane Park and Recreation District.
B. Metro Plan amendments are reviewed under Type IV procedures as specified in
Section 5.1-140.
The application will be reviewed in accordance with Type IV procedures as specified in Section
5.1-140.
C. A special review, and if appropriate, Metro Plan amendment, shall be initiated if
changes in the Metro Plan basic assumptions occur. An example would be a
change in public demand for certain housing types that in turn may affect the
overall inventory of residential land.
The application does not alter basic assumptions of the Metro Plan.
Metro Plan Amendment classifications are classified as Type I, Type II, or Type III. This application
is a Type II Amendment and requires approval by Springfield and Lane County. Metro Plan
Amendments also require amendments to subsequent refinement plans. However, no refinement
plans are applicable to the proposed site, therefore this criteria does not apply. A Type II
Amendment can be initiated at any time by Springfield or Lane County. Since Springfield is a co-
applicant, the application meets the initiation standards. The proposal adheres to the approval
process in SDC 5.14-130.
Attachment 3, Page 17 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 14
A Metro Plan Amendment may be approved only if the Springfield City Council and other
applicable governing body or bodies find that the proposal conforms to the following criteria:
A. The amendment shall be consistent with applicable Statewide Planning Goals;
Goal 1 – To develop a citizen involvement program that insures the opportunity for
citizens to be involved in all phases of the planning process.
Goal 1 addresses the need to develop a citizen involvement program to ensure citizen involvement
in all phases of the land use planning process. The development of THNA Park has been fueled by
citizen involvement since project inception. The Willamalane Park and Recreation Comprehensive
Plan was updated in 2012, using community surveys, public involvement, and outreach activities
to conduct the Community Needs Assessment. Feedback collected from over 2,000 district
stakeholders and residents included their needs and preferences related to natural areas,
recreation facilities and programs over the next 20 years. This feedback spurred the inclusion of
the development of THNA Park as a future area of improvement in the Willamalane Park and
Recreation Comprehensive Plan. In addition, in 2012 Springfield-area voters approved Measure
20-199, a $20 million Willamalane Park and Recreation District Bond to fund projects aimed at
expanding trails for hiking, biking, and walking, and preserving natural areas and parkland around
hillsides, rivers and streams. The funds from this bond measure are supporting the THNA project
and represent public backing for the project’s development.
The Planning Commission of both Springfield and Lane County will meet jointly and will accept
testimony on the proposal. Through the procedures established by the city, citizens receive notice
of hearings in a generally published local paper and have the opportunity to be heard regarding the
proposed amendments. Notice of the public hearing is provided in accordance with SDC
requirements to property owners within 300 feet of the proposed Zoning Map Amendment. Since
the proposal complies with the City’s citizen involvement program and citizens have opportunities
to be involved in the procedure, the proposal is consistent with Goal 1.
Goal 2 – To establish a land use planning process and policy framework as a basis
for all decision and actions related to the use of land and to assure an adequate
factual base for such decisions and actions.
Goal 2 requires that local comprehensive plans be consistent with the Goals, be internally
consistent, and that implementing ordinances be consistent with acknowledged comprehensive
plans. Goal 2 also requires that land use decisions be coordinated with affected jurisdictions and
that they be supported by an adequate factual basis. As required in SDC Sections 4.5-B and 5.14-
130, the City is required to give referral notice of the proposed Type II Metro Plan diagram
amendment to the City of Eugene and Lane County so they may determine if there are grounds to
participate as parties to the hearing. The City also sends the statutorily required notice of the
initial public hearing 45 days in advance to the state Department of Land Conservation and
Development, ensuring that they are given opportunity for comment and review in conformity to
applicable statewide planning goals.
The Metro Plan and the SDC, as well as the Statewide Planning Goals and applicable statutes,
provide policies and criteria for the evaluation of the Comprehensive Plan amendments.
Compliance with these measures assures an adequate factual basis for approval of the proposed
Metro Plan diagram amendment. As discussed elsewhere in this document, the proposed Plan
Attachment 3, Page 18 of 101
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THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 15
Amendment is consistent with the Metro Plan and the Goals. By demonstrating such compliance,
the Amendments satisfy the consistency element of Goal 2.
Goal 3 – To preserve and maintain agricultural lands.
Tax Lots within the subject site are designated by the Metro Plan as Low Density Residential and
by the Springfield Zoning Map as Low Density Residential (LDR), with the exception of one tax lot
that include the Light Medium Industrial (LMI) designation. The proposal does not involve
designated agricultural lands. Therefore, the proposed Amendments are consistent with Goal 3.
Goal 4 – To conserve forest lands by maintaining the forest land base and to
protect the state's forest economy…
Goal 4 does not apply to land included with the proposal. The tax lots within Springfield
jurisdiction are not designated for forest use and the proposed amendments will not removing land
from the forestland base. Willamalane previously received a grant from the U.S. forest service for
the preparation of a community forest plan for a 78.97-acre tract of land in northern portion of
THNA Park. The overarching goal of the community forest is to maintain a large tract of productive
forestland adjacent to an urban area and introduce public access, recreation, environmental
education, and best practices for sustained stewardship. A portion of the park is located within
Lane County jurisdiction and is designated as forestland. Proposed uses and development within
this portion will be addressed through separate land use approval processes with Lane County.
Therefore, the proposed Amendments are consistent with Goal 4.
Goal 5 – To protect natural resources and conserve scenic and historic areas and
open spaces.
Goal 5 requires local governments to protect a variety of open space, scenic, historic, and natural
resource values. Goal 5 and its implementing rule, OAR Ch. 660, Division 16, require planning
jurisdictions, at acknowledgment and as a part of periodic review, to:
(1) identify such resources,
(2) determine their quality, quantity, and location,
(3) identify conflicting uses,
(4) examine the economic, social, environmental, and energy (ESEE)
consequences that could result from allowing, limiting, or prohibiting the
conflicting uses, and
(5) develop programs to resolve the conflicts
There is only one subject property on Springfield’s acknowledged Metro Plan Goal 5 inventory. No
threatened or endangered species have been inventoried on the site, and no archaeological or
significant historical inventoried resources are located on the site. The National Wetland Inventory
and Springfield Local Wetland Inventory maps have been consulted and the site includes one
inventoried Goal 5 resource. However, the proposed Amendment does not change the protection
status of the resource. It can be argued that the proposed Amendment enabling the future
development of the site as a regional park will help protect the resource as opposed to the Low
Density Residential classification. The proposed Amendments also do not suggest development
Attachment 3, Page 19 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 16
on the site that would impact the resource. Therefore, the proposed Amendments do not alter the
City’s compliance with Goal 5.
Goal 6 – To maintain and improve the quality of the air, water and land resources
of the state.
The purpose of Goal 6 is to maintain and improve the quality of the air, water and land resources
of the state. Generally, Goal 6 requires that development comply with applicable state and federal
air and water quality standards. In the context of the proposed Metro Plan diagram amendment,
Goal 6 requires that the applicant demonstrate that it is reasonable to expect that applicable state
and federal environmental quality standards can be met.
The proposed Amendments do not modify any of the Goal 6 related policies of the Metro Plan, nor
do they amend the Regional Transportation Plan, the Springfield Development Code, other
applicable Goal 6 policies, or any regulations implementing those policies. Therefore, the
proposed Amendments do not alter the City’s compliance with Goal 6.
Goal 7 – To protect people and property from natural hazards.
Goal 7 requires that development subject to damage from natural hazards and disasters be
planned and/or constructed with appropriate safeguards and mitigation. The goal also requires
that plans be based on an inventory of known areas of natural disaster and hazards, such as areas
prone to landslides, flooding, etc.
After review of the natural constraints map and the FEMA Floodplain Map in relation to the subject
area, the area is not included in the City’s inventory of known areas of natural hazard other than
steep slopes, which can be at-risk for landslides. Proposed development of the site as a Regional
Park does not propose incompatible levels of development with steep slopes (such as roads,
homes, or other infrastructure) and will be designed accordingly to minimize the risk posed by
steep slopes. The site is located well outside of any established FEMA flood hazard areas.
Therefore, approval of the proposed Amendments will not alter the City’s acknowledged
compliance with Goal 7 through its adopted plans, codes and procedures.
Goal 8 – To satisfy the recreational needs of the citizens of the state and visitors
and, where appropriate, to provide for the siting of necessary recreational
facilities including destination resorts.
Goal 8 requires local governments to plan and provide for the siting of necessary recreational
facilities to “satisfy the recreational needs of the citizens of the state and visitors,” and where
appropriate, provide for the siting of recreational facilities including destination resorts. The
Willamalane 20-year Park and Recreation Comprehensive Plan was adopted by the City of
Springfield as part of the Metro Plan’s compliance with Goal 8.
The applicant proposes conversion of 428.95 acres of Low Density Residential land for open
space and recreation purposes. The proposed Amendment designate said land for parks and
open space use, consistent with the definition of a Regional Park permitted in the zoning district.
Attachment 3, Page 20 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 17
City approval of the proposal will constitute an increase in the availability of public recreational
facilities in the area following development of said parkland. As such, changing the designation of
the subject property will have no impact on the City’s existing park and open space supply. In no
case, as a result of the proposed Amendment, would a reduction in recreational facilities occur.
Through the proposed Amendment, the proposal will increase the amount of recreation capacity
within Springfield.
The proposal does not involve the siting of destination resorts. Based on these findings, the
proposed Amendments are consistent with Goal 8.
Goal 9 – To provide adequate opportunities throughout the state for a variety of
economic activities vital to the health, welfare, and prosperity of Oregon’s
citizens.
Goal 9 requires the city to provide adequate opportunities for a variety of economic activities vital
to the health, welfare, and prosperity of the citizens. The proposed Amendments will not affect the
city’s capacity for economic development, and do not alter the City’s compliance with Goal 9.
Goal 10 – To provide for the housing needs of citizens of the state.
Goal 10 requires that communities plan for and maintain an inventory of buildable residential land
for needed housing units. The 2011 Springfield Residential Land and Housing Needs Analysis
(RLHNA) analyzes housing inventory and need for the next 20 year and is Springfield’s most
current adopted housing study related to Goal 10.
Analysis of the subject site identified 159.08 acres of buildable residential land that were included
in the RLHNA inventory. Removal of the land from the residential inventory will not detrimentally
affect the City’s existing surplus of building residential land in the Low Density Residential zoning
district. The findings under Metro Plan Residential Land Use and Housing Element Policy A.3 are
incorporated by reference herein as demonstration of consistency with Goal 10.
Goal 11 – To plan and develop a timely, orderly and efficient arrangement of
public facilities and services to serve as a framework for urban and rural
development.
Goal 11 requires the provision of a timely, orderly and efficient arrangement of public facilities and
services. The subject site can be served by an orderly extension of urban services. The proposed
Amendments will not affect the ability to provide needed services. Therefore, the Amendments are
consistent with Goal 11.
Goal 12 – To provide and encourage a safe, convenient and economic
transportation system.
Goal 12 requires local governments to provide and encourage a safe, convenient and economical
transportation system. The proposed map Amendment involves approximately 666 acres of
property, of which the majority is within the Low Density Residential zoning district. In compliance
with OAR 660-012-0060, a transportation analysis report is included as Exhibit D. This report
highlights that the PM peak hour and average daily trip (ADT) generation associated with the
Attachment 3, Page 21 of 101
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METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 18
proposed use is a reduction in the potential that would be generated by the site if it were
developed under land use permissions associated with the existing plan and zone designations.
Therefore, the Amendments are consistent with Goal 12.
Goal 13 – To conserve energy.
The Energy goal is a general planning goal and provides limited guidance for site-specific map
amendments. Goal 13 is directed at the development of local energy policies and implementing
provisions and does not establish any requirements with respect to other types of land use
decisions. To the extent that Goal 13 could be applied to the proposed Amendments, the
designations are consistent with Goal 13. The proposal will not hinder management or
conservation practices related to energy consumption.
Goal 14 – To provide for an orderly and efficient transition from rural to urban land
use, to accommodate urban population and urban employment inside urban
growth boundaries, to ensure efficient use of land, and to provide for livable
communities.
The proposed Amendments apply to a site that is currently undeveloped and rural in nature. By
cultivating the space as a Regional Park, a more seamless interface is created between the rural
and urban environment, enhancing the livability of the urban area. Therefore, Goal 14 does not
apply.
Goal 15 – To protect, conserve, enhance and maintain the natural, scenic,
historical, agricultural, economic and recreational qualities of lands along the
Willamette River as the Willamette River Greenway.
Goal 15 does not apply to the proposal because the subject area is not located within the
Willamette River Greenway.
Goal 16 through 19 (Estuarine Resources, Coastal Shorelands, Beaches and
Dunes, and Ocean Resources)
The subject site is not located within any coastal, ocean, estuarine, or beach and dune resources
related area. Goals 16-19 do not apply to this application.
B. and Plan inconsistency:
1. In those cases where the Metro Plan applies, adoption of the amendment shall
not make the Metro Plan internally inconsistent.
The application requests amendment of the Metro Plan diagram from Low Density Residential to
Parks and Open Space for 421.15 acres. This section of the application narrative addresses the
consistency of the Amendments with the applicable policies of the Metro Plan, to demonstrate that
adoption of the Amendments will not make the Metro Plan internally consistent.
This narrative only addresses those policies that apply to the proposal, and does not discuss those
portions of the Metro Plan that (1) apply to land uses other than the current or proposed
Attachment 3, Page 22 of 101
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METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 19
designations for the subject site and will not be affected by the proposed Plan diagram, or (2)
clearly apply only to specific development applications (e.g., site plan review submittals or
subdivisions). All Metro Plan policies were evaluated in relation to their applicability to the
Amendments and the following policies were found to be applicable to the proposal. The findings
demonstrate how the Plan Amendments are consistent with, and are in fact supported by the
policy directions contained in the Metro Plan.
Metropolitan Residential Land Use and Housing Element
Residential Land Supply and Demand
A.3. Provide an adequate supply of buildable residential land within the
UGB for the 20-year planning period at the time of Periodic Review.
In June 2011, the City of Springfield adopted an ordinance amending the Metro Plan to adopt the
Springfield 2030 Refinement Plan Residential Land Use and Housing Element and to establish a
separate Springfield Urban Growth Boundary pursuant to ORS 197.304. The ordinance included
the Springfield Residential Land and Housing Needs Analysis (RLHNA), which is an “analysis of
land supply and housing demand prepared by ECONorthwest that incorporates input from
citizens, stakeholder groups, commissions, and elected officials received throughout a multi-year
citizen involvement process that included a Residential Lands citizen advisory committee, online
public surveys, community workshops, work sessions, open houses and public hearings.” This
analysis applies to the proposal, which involves the removal of land from the residential inventory.
According to the RLHNA, Springfield has a 378-acre surplus of Low Density Residential land, and
a 300-acre deficit of Parks and Open Space Land. In regard to parks and open space land, the
technical analysis on page 71 states:
“The Parks and Open designation has a deficit of 300 acres. This need does not imply that
the City should expand the UGB for parks and open space. The City has a surplus of
buildable lands in the low and medium density residential plan designations that can
provide land for future parks within those designations, consistent with the objectives of the
adopted Park and Recreation Comprehensive Plan. A portion of the parks and open space
need can also be met on residentially designated land that has constraints and therefore is
not counted as buildable acres (e.g. ridgeline trail systems).”
As discussed above, the technical analysis identifies a deficit of land in the Parks and Open Space
designation and includes an estimate of future land needs. The estimate of land needed for parks
and open space uses a parkland standard of 14 acres per 1,000 persons based on the level of
service standard established in the 2004 Willamalane Parks and Recreation Comprehensive Plan,
which projected need for parkland in Springfield between 2002 and 2022. Based on the level of
service standard, an additional 357 acres of parks and open space land is needed by 2030.
Although Willamalane adopted an update to the Comprehensive Plan in 2012, the 2004
Comprehensive Plan was the adopted plan at the time of preparation of the RLHNA. The
estimates of parks and open space land needs in the RLHNA and 2012 Plan are consistent (357
acres and 364 acres, respectively). The projected deficits of 357 acres in the Springfield RLHNA
and 364 acres in the 2012 Plan fall within the estimated surplus of buildable land remaining in the
UGB for residential use in Springfield by 2030. In addition, Statewide Planning Goal 8 allows cities
Attachment 3, Page 23 of 101
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THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 20
and park districts to acquire land for park uses outside of Urban Growth Boundaries.
Willamalane’s service district boundary and planning area extend outside the Springfield UGB in
some areas. However, a majority of the proposed parkland is within the UGB on residentially
designated land, a portion of which is land that has constraints and therefore is not counted as
buildable acres.
The RHLNA database was obtained from the City of Springfield and reviewed in order to isolate
properties associated with THNA Park that were included in the analysis and are within Springfield
jurisdiction. Based on these properties, the Applicant identified buildable residential acres
associated with each tax lot and resolved several discrepancies in the database. The analysis
determined that 159.08 acres within subject site are accounted for in the RHLNA as buildable
residential acres, as illustrated in Table 3-1 Buildable Residential Acres within THNA Park.
Removal of the residential buildable acres from Springfield’s housing inventory will result in a
remaining surplus of more than 300 acres of buildable residential acres. Thus, the proposal is
consistent with this functional plan.
Table 4-1. Buildable Residential Acres within THNA Park
MAPLOT
TOTAL
THNA
ACRES
INCLUDED
IN RLHNA
DEVELOPED
ACRES
CONSTRAINED
ACRES
BUILDABLE
ACRES
%
BUILDABLE
BUILDABLE
RESIDENTIAL
ACRES
WITHIN THNA
NOTES
1702350003500 0.97 0.90 0.07 0.00 0.00 0.00
1702350003602 3.20 0.25 0.19 2.91 0.91 2.91
1702350003604 41.51 0.00 24.56 27.25 0.66 27.25
1802020000100 125.25 0.00 125.25 43.35 0.35 43.35
1802020000400 13.30 0.00 13.30 1.68 0.13 1.68
1802020000401 97.71 0.00 97.71 24.33 0.25 24.33
1802030000600 103.93 0.00 122.31 65.57 0.50 51.51 2
1802030000602 30.43 0.00 0.00 1
1802090000100 11.01 0.25 58.97 83.30 0.73 8.06 2
1802100000100 206.84 0.00 0.00 1
TOTAL 634.15 1.40 442.36 248.39 3.52 159.08
1 Maplot not included in RHNLA database.
2 Buildable acreage adjusted to account for maplot extending ouside THNA boundary.
Willamalane’s service district boundary and planning area extend outside the Springfield UGB in
some areas. However, a majority of the proposed parkland is within the UGB on residentially
designated land, a portion of which is land that has constraints and therefore is not counted as
buildable acres. The land outside of the UGB is rural/forestland in character and will not be
negatively impacted by the Amendments.
Based on these findings, the proposed Amendments are consistent with the Residential Land Use
and Housing element of the Metro Plan.
Attachment 3, Page 24 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
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METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 21
Environmental Resources Element
Forest Lands
C.5. Metropolitan goals relating to scenic quality, water quality,
vegetation and wildlife, open space, and recreational potential shall be
given a higher priority than timber harvest within the UGB.
C.7a. Conserve forest lands by maintaining the forest land base and
protect the state’s forest economy by making possible economically
efficient forest practices that assure the continuous growing and
harvesting of forest tree species as the leading use on forest land
consistent with sound management of soil, air, water, and fish and
wildlife resources and to provide for recreational opportunities and
agriculture.
***
Riparian Corridors, Wetlands, and Wildlife Habitat
C.8. Local governments shall develop plans and programs which
carefully manage development on hillsides and in water bodies, and
restrict development in wetlands in order to prevent erosion and
protect the scenic quality, surface water and groundwater quality,
forest values, vegetation, and wildlife values of those areas.
The proposal will not amend, supersede, or violate any adopted regulations, plans, or programs
that manage development impacts on natural resources. The proposal will not compromise
existing established protection provisions in the SDC, will protect the amount of open space along
the ridgeline, and will create a community forest. There are no documented occurrences of
endangered or threatened plant or wildlife species on the subject site. There is one wetland site
per the National Wetland Inventory, which will be better protected from future development under
the proposed Parks and Open Space designation than the existing Low Density Residential
designation. THNA Park will conserve forestland through a community demonstration forest, and
the Regional Park designation will protect the scenic quality of the hillside.
Based on these findings, the proposed Amendments are consistent with the Environmental
Resources Element.
Open Space
C.21. When planning for and regulating development, local
governments shall consider the need for protection of open spaces,
including those characterized by significant vegetation and wildlife.
Means of protecting open space include but are not limited to outright
acquisition, conservation easements, planned unit development
Attachment 3, Page 25 of 101
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METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 22
ordinances, streamside protection ordinances, open space tax
deferrals, donations to the public, and performance zoning.
Willamalane currently manages approximately 783 acres of land in 37 parks and three
undeveloped properties, including two parks classified as Natural Area Parks. “Environment” and
“Stewardship” are two of Willamalane’s Core Values (2012 Plan, p. 8), and the 2012 Plan is guiding
the proposed development of THNA Park. One of the “General Parks and Natural Areas
Strategies” in the 2012 Plan that is applicable to the proposed park and supports the policies in
the Environmental Resources Element of the Metro Plan is as follows:
“A7. Work with interested parties to acquire and preserve natural areas for future
generations.” (2012 Plan, p. 27)
In addition, four “Natural Area Park Strategies” in the 2012 Plan that will be applied to THNA Park
support the goals and policies in the Environmental Resources Element of the Metro Plan.
“A39. Acquire and develop a system of natural-area parks that protects, conserves
and enhances elements of the natural and historic landscape that give the region its
unique sense of place.” (2012 Plan, p. 39)
“A40. Develop comprehensive natural resource management plans for natural areas
as a basis for making acquisition, development and restoration decisions.” (2012
Plan, p. 39)
“A41. Provide opportunities for nature-based recreation, such as wildlife viewing,
fishing, hiking, bicycling, nature play, etc.” (2012 Plan, p. 39)
“A42. Protect and enhance a variety of habitat types within Willamalane’s park and
open space system, including upland and wildlife communities such as oak savannah,
wetlands, upland prairie and riparian forest.” (2012 Plan, p. 39)
These strategies are applicable to the proposed Amendments and subsequent park development.
The park will be public regional open space, and will preserve vegetation and wildlife through
trailheads, trails, and a community demonstration forest. The proposed Amendments
singlehandedly facilitate the project’s development, which is inherently open space protection by
designation.
Based on these findings, the proposed Amendments are consistent with the Environmental
Resources Element of the Metro Plan.
Environmental Design Element
E.1 In order to promote the greatest possible degree of diversity, a broad
variety of commercial, residential, and recreational land uses shall be
encouraged when consistent with other planning policies.
E.2 Natural vegetation, natural water features, and drainage-ways shall be
protected and retained to the maximum extent practical. Landscaping
shall be utilized to enhance those natural features. This policy does not
Attachment 3, Page 26 of 101
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Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 23
preclude increasing their conveyance capacity in an environmentally
responsible manner.
E.5. Carefully develop sites that provide visual diversity to the urban area
and optimize their visual and personal accessibility to residents.
The Environmental Design Element of the Metro Plan sets broad goals and policies for desired
qualities of life in the Eugene-Springfield area. The proposed Amendments promote diversity by
increasing the amount of recreational land use in Springfield, and have the potential to offer the
first mountain biking recreational area in the city. In addition, by converting land zoned Low
Density Residential to Parks and Open Space, natural vegetation can be protected and retained to
the maximum extent practical. The core use of the Natural Park as defined by Willamalane is for
“wildlife habitat and natural resource conservation,” with an 80/20 split in land designated for
preservation versus land for recreation. Preserved from development, the site can house a
community forest, and the single wetland located within the site boundary can be protected. The
proposed Amendments also enable visual diversity by creating a richer interface between the
urban-rural boundary.
Based on these findings, the proposed Amendments are consistent with the Environmental Design
Element of the Metro Plan.
Transportation Element
Transportation System Improvements: Roadways
F.14. Address the mobility and safety needs of motorists, transit users,
bicyclists, pedestrians, and the needs of emergency vehicles when
planning and constructing roadway system improvements.
Springfield’s 2035 Transportation System Plan (TSP) identifies two potential future roadway
projects in the vicinity of the subject site: R-45 and R-46. R-45 focuses on improvements within
the Jasper-Natron area, and involves constructing multiple roadways between Bob Straub
Parkway, Jasper Road, and Mt. Vernon Road. R-46 addresses Bob Straub Parkway to
Mountaingate Drive and involves a new collector with a three-lane cross-section with sidewalks
and bicycle facilities.
The Springfield Conceptual Local Street Map shows several future local streets in the vicinity of
the subject site. These future streets include an extension of a private road off of Weyerhauser
Road, a connection between Mountaingate Drive and 66th Street, and extensions and connections
of Jessica Street and 69th Street. Planned connections are also anticipated between Daisy Street,
Glacier Street, and 79th Street.
Language included in Recital 16 of the MOU between Willamalane and City regarding the Thurston
Hills Natural Area addresses future roadway and street projects. This language is included for
reference:
16. Portions of the area included by Willamalane in the Thurston Hills Natural Area Park are
identified for possible future roadway extensions in the City’s adopted Conceptual Street
Attachment 3, Page 27 of 101
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METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 24
Map. City acknowledges that all extensions depicted on the Conceptual Street Map may
not be needed given that the Willamalane-owned property will not be developed for
residential uses, but that an access for the connectivity and/or public safety purposes may
be required as a condition of approval through the Metro Plan amendment and zone
change process.
The annexation agreement between Willamalane and the City resulting from a separate request for
Annexation application approval of Map 17-02-35-00 Lot 03602 will address future street
extensions.
Approval of the proposed Amendments will not disrupt roadway system improvements or the
mobility and safety needs of motorists, transit users, bicyclists, pedestrians, and emergency
vehicles.
Parks and Recreation Facilities Element
H.1. Develop a system of regional-metropolitan recreational activity areas
based on a facilities plan for the metropolitan area that includes
acquisition, development, and management programs. The Metro Plan and
system should include reservoir and hill parks, the Willamette River
Greenway, and other river corridors.
The Goal of the Parks and Recreation Facilities Element is to provide a variety of parks and
recreation facilities to serve the diverse needs of the community’s citizens (Metro Plan, III-H-4).
The proposed Amendments are required to enable the acquisition of land for and development of
a Regional Park, and to further satisfy the need for a larger parks inventory in Springfield.
Based on these findings, the proposed Amendment is consistent with the Parks and Recreation
Facilities Element of the Metro Plan.
Citizen Involvement Element
K.2. Maintain and adequately fund a variety of programs and procedures
for encouraging and providing opportunities for citizen involvement in
metropolitan area planning issues. Such programs should provide for
widespread citizen involvement, effective communication, access to
technical information, and feedback mechanisms from policymakers.
The development of THNA Park has been characterized by citizen involvement from its inception
to its implementation. The Willamalane Park and Recreation Comprehensive Plan was updated in
2012, using feedback from surveys, public events, and outreach activities. This feedback sparked
the development of THNA Park and the project was listed in the 2012 Plan as a key area of
development. Springfield-area voters approved Measure 20-199 in 2012, a $20 million
Willamalane Park and Recreation District Bond to further support the project and fund expansion
of trails and preservation of parkland around hillsides, rivers, and streams.
Attachment 3, Page 28 of 101
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THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 25
The Planning Commission of both Springfield and Lane County will meet jointly to review the
proposal and will accept public testimony on the proposal. Citizens will also have the opportunity
to participate in the subsequent design process for amenities within THNA Park.
2. In cases where Springfield Comprehensive Plan applies, the amendment shall
be consistent with the Springfield Comprehensive Plan. (6331)
The Springfield Comprehensive Plan is represented through the Metro Plan. All criteria for the
Metro Plan have been met based on the preceding findings.
The proposed Amendments are consistent with all applicable Metro Plan approval criteria.
4.2 SDC 5.22-115 Zoning Map Amendment Approval Criteria
The purpose of SDC 5.22-105 is to provide standards and procedures for legislative and quasi-
judicial amendments to the Official Zoning Maps. The applicant intends to follow the review
process defined in SDC 5.22-110.
A Zoning Map amendment may be approved only if the Springfield City Council and other
applicable governing body or bodies find that the proposal conforms to the following criteria in
SDC 5.22-115:
1. Consistency with applicable Metro Plan policies and the Metro Plan diagram;
Consistency with applicable Metro Plan policies and diagram are incorporated by reference herein
(see Section 4.1 Metro Plan Amendment Approval Criteria).
2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual
Development Plans and functional plans; and
The site is not within an area subject to an adopted refinement plan. This criterion does not apply.
3. The property is presently provided with adequate public facilities, services and
transportation networks to support the use, or these facilities, services and
transportation networks are planned to be provided concurrently with the
development of the property.
As demonstrated by the preceding findings under the first criterion of approval, incorporated by
reference herein, the proposed site is within Springfield city limits and is thus within an area that
receives public services. Services within the vicinity of the subject site include:
Water Service
Springfield Utility Board (SUB) has a 12-inch DIP water line that runs east-west along the north
side of Main Street. The residual pressure in the area is 35.3 psi and the rate of flow is 1,500
gallons per minute. The water line has capacity to serve the subject site.
Wastewater Service
Attachment 3, Page 29 of 101
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Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 26
The Crossway Estates Development project installed an 8-inch PVC gravity sewer main that runs
northerly along the alignment of 75th Street beginning approximately 100 feet north of the Center
intersection of 75th Street and Main Street. The southern terminus of the existing sewer line is
located approximately 120 feet west and 160 feet north of Tax Lot 03602 and is the nearest
connection point.
Stormwater Service
There are three different facilities serving parcels in the vicinity of the subject site:
§ A 24-inch concrete stormwater main which runs westerly along the south side of Main
Street beginning approximately 800 feet west of Tax Lot 3602. Stormwater runoff from
Tax Lot 3602 is currently conveyed to this system via roadside ditches.
§ A 12-inch RCCP storm sewer pipe installed during the Crossway Estates Development
project that runs northerly along the west side of 75th Street located approximately 15
feet northwest of the above mentioned 8-inch PVC gravity sewer main. The southern
terminus of the 12-inch RCCP storm sewer pipe is approximately 130 feet west and 175
feet north of Tax Lot 3602.
§ The northerly flowing, 75th Street Creek crosses Main Street via a 32-inch diameter
concrete culvert approximately 110 feet east of Tax Lot 3602. This may serve as a
discharge point for runoff treated on-site.
Electrical Service
The Springfield Utility Board (SUB) provides electric services within the City of Springfield’s city
limits under the authority of the Springfield City Charter. SUB has overhead three-phase primary
power lines along the north side of Main Street and a single-phase service to feed the subject site.
Transportation
Springfield’s 2035 Transportation System Plan (TSP) identifies two potential future roadway
projects in the vicinity of the subject site: R-45 and R-46. R-45 focuses on improvements within
the Jasper-Natron area, and involves constructing multiple roadways between Bob Straub
Parkway, Jasper Road, and Mt. Vernon Road. R-46 addresses Bob Straub Parkway to
Mountaingate Drive and involves a new collector with a three-lane cross-section with sidewalks
and bicycle facilities.
The Springfield Conceptual Local Street Map shows several future local streets in the vicinity of
the subject site. These future streets include an extension of a private road off of Weyerhauser
Road, a connection between Mountaingate Drive and 66th Street, and extensions and connections
of Jessica Street and 69th Street. Planned connections are also anticipated between Daisy Street,
Glacier Street, and 79th Street.
Language included in Recital 16 of the MOU between Willamalane and City regarding the Thurston
Hills Natural Area addresses future roadway and street projects. This language is included for
reference:
16. Portions of the area included by Willamalane in the Thurston Hills Natural Area Park are
identified for possible future roadway extensions in the City’s adopted Conceptual Street
Map. City acknowledges that all extensions depicted on the Conceptual Street Map may
Attachment 3, Page 30 of 101
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METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 27
not be needed given that the Willamalane-owned property will not be developed for
residential uses, but that an access for the connectivity and/or public safety purposes may
be required as a condition of approval through the Metro Plan amendment and zone
change process.
The annexation agreement between Willamalane and the City resulting from a separate request for
Annexation application approval of Map 17-02-35-00 Lot 03602 will address future street
extensions.
Based on the preceding findings, the subject site is provided with adequate public facilities,
services, and transportation networks.
4. Legislative Zoning Map amendments that involve a Metro Plan Diagram
amendment shall:
a. Meet the approval criteria specified in Section 5.14-100,
i. The amendment shall be consistent with applicable Statewide Planning
Goals;
Consistency with applicable Statewide Planning Goals are incorporated by reference herein (see
Section 4.1 Metro Plan Amendment Approval Criteria).
ii. and Plan inconsistency:
In those cases where the Metro Plan applies, adoption of the amendment
shall not make the Metro Plan internally inconsistent.
Consistency with applicable Metro Plan policies and diagram are incorporated by reference herein
(see Section 4.1 Metro Plan Approval Criteria). The application does not alter the basic
assumptions of the Metro Plan or make it internally inconsistent.
In cases where Springfield Comprehensive Plan applies, the amendment
shall be consistent with the Springfield Comprehensive Plan. (6331)
The Springfield Comprehensive Plan is represented through the Metro Plan. All criteria for the
Metro Plan have been met.
b. Comply with Oregon Administrative Rule (OAR) 660-012-0060, where
applicable.
Based on the Transportation Planning Rule (TPR) analysis conducted by Branch Engineering,
included as Exhibit D and incorporated by reference herein, OAR 660-012-0060(1) is satisfied, as
the proposed Amendments will result in a de-intensification of use. The PM peak hour and
average daily trip (ADT) generation associated with the proposed use is a reduction in the potential
that would be generated by the site if it were developed under land use permissions associated
with the existing zoning and Metro Plan designations.
Attachment 3, Page 31 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 28
For the residential portion of the site, existing development potential is calculated with a build-out
of single-family detached dwelling units as allowed by SDC 3.2-200. The site is determined to be
capable of supporting approximately 1,591 detached dwelling units assuming the existing Low
Density Residential Metro Plan designation is applicable to the entire estimated buildable area of
159.08 acres. With this number of units, under the existing LDR zoning designation the PM peak
hour trips would be 1,594 trips, including trips generated by the LMI zone. Under the existing
Metro Plan designation, the PM peak hour trips would be 1,591 trips. Conversely, under the
proposed zoning and Metro Plan designation (Public Land and Open Space), PM peak hour trips
would equate to only 88 trips. In terms of ADT, under the existing LDR and LMI zones, ADT would
be 14,974 trips. Under the existing Metro Plan designation, the ADT would be 15,146 trips.
Conversely, under the proposed zoning and Metro Plan designation, the ADT would equate to only
2,022 trips.
Both the PM peak hour and ADT trip generation scenarios with the Amendments are based on the
site’s gross area within the UGB. Much of the land will remain as open space and will continue to
be relatively inaccessible pending the land use applications’ approval. The proposal to change the
zoning and Metro Plan permitted use designations on the site would significantly reduce the site’s
trip generation potential of the land, and the trip generation levels associated with the reasonable
worst case development scenario of the proposed conditions were not found to have an
identifiable “significant affect” defined by OAR 660-012-0060(1).
The City may waive the requirement for traffic impact and parking studies for the potential park
use on the site required by SDC 4.7-200B.4 and SDC 4.6-125F based on the potential trip
generation of less than 100 PM peak hour trips, which is the lower threshold for the number of
peak hour trips generated by a site to determine if a traffic impact analysis is required.
In summary, the TPR is satisfied under Goal 12 criteria with the proposed zone change from LDR
and LMI districts to the POS district and proposed Metro Plan designation change from Low
Density Residential to Parks and Open Space designation, as it was shown that the change in use
would not have a significant affect to a transportation facility as identified in OAR 660-012-0060(1).
4.3 Other Applicable SDC Approval Criteria and Standards
SDC 3.3-805 Urbanizable Fringe Overlay District
The purpose of the Urbanizable Fringe (UF-10) Overlay District is to control potential urban sprawl
and scattered urbanization to achieve compact growth. The UF-10 Overlay District limits the
division of land and prohibits urban development of unincorporated urbanizable land which will
eventually be annexed to the City.
The provisions of the UF-10 Overlay District apply to all land between Springfield’s city limits and
the Urban Growth Boundary. The primary exceptions to the district’s application are designated
Government and Education on the Metro Plan diagram, and land that is annexed into the City.
The current schedule of uses in SDC 3.3-815 only applies where there is an underlying residential,
commercial, or industrial district. Since the applicant seeks to change the underlying district from
LDR and LMI to POS, the provisions listed under the schedule for uses are not applicable.
Attachment 3, Page 32 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 29
Review of the Amendments in the /UF-10 take into consideration the following:
A. The siting of single-family residences in the UF-10 Overlay District that require a
Future Development Plan as specified in Section 5.12-120E. shall be reviewed
under Type I procedure.
The application does not involve the siting of single-family residences. This standard does not
apply.
B. Partitions are reviewed under Type II procedure.
The application does involve a partition and is not a Type II procedure. This standard does not
apply.
C. All other requests are reviewed in accordance with the procedures applicable in
the underlying zoning district (See Section 4.3-145 for siting standards and review
process for certain wireless telecommunications systems facilities).
The application does not involve any other requests. This standard does not apply.
D. The Hearings Official shall hear all Type III land use requests.
The application does not involve a Type III land use request. This standard does not apply.
Additional Provisions
A. The City shall not extend water or sanitary sewer service outside the city limits,
unless a health hazard, as defined in ORS 222.840 et seq., is determined to exist.
Annexation of the affected territory so served is required if the territory is within
the urban growth boundary and is contiguous to the city limits.
The City may extend water or sanitary sewer outside the city limits or urban
growth boundary to provide these services to properties within the city limits. As
provided in ORS 222.840 et seq., the City and a majority of the electors of the
affected territory may agree to an alternative to annexation to mitigate the health
hazard, including extraterritorial extension of services without annexation.
The application does not propose an extension of water or sanitary service. The proposed
trailhead is the only portion of the subject site that is planned to have services. The Applicant has
submitted a separate Annexation application for the THNA trailhead to enable the extension of
urban services, which satisfies this standard.
B. The Lane County Sanitarian shall certify that the proposed individual wastewater
disposal system meets D.E.Q. standards prior to Development Approval.
The application does not involve an individual wastewater disposal system. This standard does
not apply
Attachment 3, Page 33 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 30
C. Lane County is considered an affected party and shall be notified of all
development applications.
Lane County will be notified of all development applications accordingly. This standard is
satisfied.
D. Siting of Residential Uses. Detached single-family dwellings shall be sited to
allow the future division and/or more intensive use of the property. The
applicable on-site sewage disposal facility shall be conditional, and made a
part of any permit necessary to achieve the standards of this Overlay District.
The following standards apply:
Connection to the Sanitary Sewer System. Any property to be partitioned that
is within the distances specified in OAR 340-071-0160(4)(A) for connection to
the City’s sanitary sewer system shall require annexation to the City prior to
Partition Tentative Plan submittal, unless the Director determines that a
topographic or man-made feature makes the connection physically
impractical. In the event of such determination, the Partition application may
be approved without annexation.
The application does not involve siting of residential uses. This standard does not apply.
F. Uses requiring Discretionary review, uses requiring specific development
standards, new permitted uses and expansion of permitted uses in
commercial and industrial districts shall demonstrate that the use will not
generate singly or in the aggregate additional need for key urban services.
The application does not require discretionary review. This standard does not apply.
G. R.V. parks and campgrounds shall be located on land classified Public Land
and Open Space (PLO) and be subject to the specific development standards
specified Section 4.7-220. (6238; 6212)
The application does not propose R.V. parks or campgrounds. This standard does not apply.
SDC 4.7-100 Specific Development Standards
The SDC outlines several standards for different types of development. The types of development
relevant to this application are included below, along with their standards and findings of
compliance.
SDC 4.7-200 Public and Private Parks
B. Standards for Public and Private Parks in the PLO District.
1. Primary access shall be on arterial or collector streets unless specified or
exempted elsewhere in this Section.
Attachment 3, Page 34 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 31
Primary access to the subject site will be provided from Main Street/McKenzie Highway, with
alternate access points possible in the future. This standard is satisfied.
2. Stadiums, swimming pools and other major noise generators within parks
shall be located at least 30 feet from residential property lines and
screened by a noise attenuating barrier.
The proposal does involve any major noise generators. This standard does not apply.
3. Community and regional parks shall be designated on a Park Facilities Plan
adopted by the City, or be approved in accordance with Type III review
procedure (Discretionary Use).
The proposed THNA Park is referenced on Map 2-3 (proposed “Natural Area Park Projects”) and
as project numbers 3.8 and 3.9 in Willamalane’s 2012 Park and Recreation Comprehensive Plan
(page 42). This standard is satisfied.
4. A traffic impact and parking study shall be prepared by a Traffic Engineer
and approved by the City Engineer.
Findings from Exhibit D Transportation Planning Rule Analysis Technical Memorandum are
incorporated by reference herein as demonstration that this standard is satisfied.
C. Standards for the Urbanizable Fringe Overlay District. Neighborhood Parks
shall be shown on the Metro Plan or an adopted refinement plan, or shall be
reviewed under Type III Discretionary Use procedures.
This application does involve Neighborhood Parks. This standard does not apply.
SDC 4.7-203 Public Land and Open Space
A. Primary access shall be on arterial or collector streets except as provided or
exempted elsewhere in Section 3.2-700.
Primary access to the subject site will be provided from Main Street/McKenzie Highway, with
alternate access points possible in the future. This standard is satisfied.
B. Stadiums, swimming pools and other major noise generators shall be located
at least 30 feet from residential property lines and shall be screened by a
noise-attenuating barrier.
The proposal does involve any major noise generators. This standard does not apply.
C. Community and regional parks shall comply with the criteria specified in
Section 4.7-200B.
The preceding findings under SDC 4.7-200 are incorporated by reference herein as demonstration
that this standard is satisfied.
Attachment 3, Page 35 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 32
D. For all special uses, a traffic impact study shall be prepared as specified in
Section 4.2-105A.4.
Findings from Exhibit D Transportation Planning Rule Analysis Technical Memorandum are
incorporated by reference herein as demonstration that this standard is satisfied.
E. R.V. parks and campgrounds within regional parks shall comply with the
standards specified in Section 4.7-220D.
The application does not propose R.V. parks or campgrounds. This standard does not apply.
F. Private/Public Elementary and Middle Schools shall meet the standards
specified in Section 4.7-195.
The application does not involve Private/Elementary and Middle Schools. This standard does not
apply.
G. Wellness centers shall comply with the criteria specified in Section 4.7-250.
The application does not involve Wellness Centers. This standard does not apply.
H. Pedestrian amenities for public buildings in mixed uses Metro Plan land use
designations as specified in Section 3.2-625G.
The application does not involve public buildings. This standard does not apply.
SDC 4.7-205 Recreation Facilities
A. Arcades, Auditoriums, Bingo Parlors, Dance Halls (licensed by the State of
Oregon as specified in ORS 167.118), Non-Alcohol Night Clubs, Hydrotubes,
Velodromes and Skating Rinks shall not be permitted to abut a residential
district.
The application does not involve any of the above referenced recreation facilities. This standard
does not apply.
B. Non-Alcohol Night Clubs shall locate at least 500 feet from an established
tavern. Taverns shall locate at least 500 feet from an established non-alcohol
night club.
The application does not involve non-alcoholic night clubs or taverns. This standard does not
apply.
C. Stadiums, swimming pools, batting cages and other major noise generators
shall be located at least 30 feet from residential and commercial property lines
and screened by a noise attenuating barrier.
Attachment 3, Page 36 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy INITAL SUBMITTAL | December 23, 2016 33
The proposal does involve any major noise generators. This standard does not apply.
4.5 Conclusion
Based on available information, supporting materials, and findings, the request is consistent with
all applicable approval criteria and provisions.
Attachment 3, Page 37 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy FINAL SUBMITTAL | December 23, 2016 Exhibits
EXHIBITS
Attachment 3, Page 38 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy FINAL SUBMITTAL | December 23, 2016 Exhibit A
EXHIBIT A
VICINITY MAP
Attachment 3, Page 39 of 101
CITY LIMITS BOUNDARY
TAX LOT
URBAN GROWTH BOUNDARY
PROJECT AREA
MAP AND TAX LOT NUMBER18-02-02-00
TL 100
MAIN ST
BOB STRAUB
PKWYRDWEYERHAUS
ER
17-02-35-00
TL 3500
17-02-35-00
TL 3604
17-02-35-00
TL 3602
18-02-02-00
TL 100
18-02-02-00
TL 401
18-02-02-00
TL 400
18-02-02-00
TL 100
18-02-03-00
TL 600
18-02-09-00
TL 100
18-02-03-00
TL 602
PARCEL SUMMARY
LANE COUNTY JURISDICTION
SPRINGFIELD JURISDICTION
VICINITY MAP
0'300'600' 1200'
SHEET #
Drawn By:
Checked:
Project #:
Date:
SHEET TITLE
Rev. #:Date:THURSTON HILLS NATURAL AREAZ:\Willamalane Thurston Hills Natural Area 1626G\CAD\THNA Metro Plan and Zoning.dwg VIVIAN SCHOUNG 19 December 2016Designed:
STAMP
SHEET TITLE
1526 G
CM
VS
SCALE
VICINITY MAP
Dec. 23, 2016
V1
LEGEND
Attachment 3, Page 40 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy FINAL SUBMITTAL | December 23, 2016 Exhibit B
EXHIBIT B
EXISTING AND PROPOSED PLAN
DESIGNATIONS
Attachment 3, Page 41 of 101
CITY LIMITS BOUNDARYTAXLOTURBAN GROWTH BOUNDARYPROJECT AREALOW DENSITY RESIDENTIALLIGHT MEDIUM INDUSTRIALCOMMERCIALPARKS AND OPEN SPACEHIGH DENSITY RESIDENTIALMEDIUM DENSITY RESIDENTIALSPECIAL HEAVY INDUSTRIALMETRO PLAN DESIGNATIONGOVERNMENT AND EDUCATIONAGRICULTURENORTHSCALE 1" = 1500'12/23/2016THURSTON HILLS NATURAL AREAEXISTING METRO PLANCITY OF SPRINGFIELD, OREGON1500'1000'500'250'0'
Attachment 3, Page 42 of 101
CITY LIMITS BOUNDARYTAXLOTURBAN GROWTH BOUNDARYPROJECT AREALOW DENSITY RESIDENTIALLIGHT MEDIUM INDUSTRIALCOMMERCIALPARKS AND OPEN SPACEHIGH DENSITY RESIDENTIALMEDIUM DENSITY RESIDENTIALSPECIAL HEAVY INDUSTRIALPROPOSED METRO PLAN DESIGNATIONGOVERNMENT AND EDUCATIONAGRICULTURENORTHSCALE 1" = 1500'12/23/2016THURSTON HILLS NATURAL AREAPROPOSED METRO PLANCITY OF SPRINGFIELD, OREGON1500'1000'500'250'0'
Attachment 3, Page 43 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy FINAL SUBMITTAL | December 23, 2016 Exhibit C
EXHIBIT C
EXISTING AND PROPOSED ZONING
DESIGNATION
Attachment 3, Page 44 of 101
CITY LIMITS BOUNDARYTAXLOTURBAN GROWTH BOUNDARYPROJECT AREALOW DENSITY RESIDENTIAL (LDR)GENERAL OFFICE (GO)NEIGHBORHOOD COMMERCIAL (NC)COMMUNITY COMMERCIAL (CC)HIGH DENSITY RESIDENTIAL (HDR)MEDIUM DENSITY RESIDENTIAL (MDR)PUBLIC LAND AND OPEN SPACE (PLO)LIGHT-MEDIUM INDUSTRIAL (LMI)SPECIAL HEAVY INDUSTRIAL (SHI)ZONING DESIGNATIONSNORTHSCALE 1" = 1500'12/23/2016THURSTON HILLS NATURAL AREAEXISTING ZONINGCITY OF SPRINGFIELD, OREGON1500'1000'500'250'0'
Attachment 3, Page 45 of 101
CITY LIMITS BOUNDARYTAXLOTURBAN GROWTH BOUNDARYPROJECT AREALOW DENSITY RESIDENTIAL (LDR)GENERAL OFFICE (GO)NEIGHBORHOOD COMMERCIAL (NC)COMMUNITY COMMERCIAL (CC)HIGH DENSITY RESIDENTIAL (HDR)MEDIUM DENSITY RESIDENTIAL (MDR)PUBLIC LAND AND OPEN SPACE (PLO)LIGHT-MEDIUM INDUSTRIAL (LMI)SPECIAL HEAVY INDUSTRIAL (SHI)PROPOSED ZONING DESIGNATIONSNORTHSCALE 1" = 1500'12/23/2016THURSTON HILLS NATURAL AREAPROPOSED ZONINGCITY OF SPRINGFIELD, OREGON1500'1000'500'250'0'
Attachment 3, Page 46 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy FINAL SUBMITTAL | December 23, 2016 Exhibit D
EXHIBIT D
TRANSPORTATION RULE ANALYSIS
TECHNICAL MEMORANDUM
Attachment 3, Page 47 of 101
TECHNICAL MEMORANDUM
EUGENE-SPRINGFIELD SALEM-KEIZER
310 5th Street, Springfield, OR 97477 | p: 541.746.0637 | www.branchengineering.com
DATE: December 7, 2016
PROJECT: Willamalane Thurston Hills Natural Area
TO: Michael Liebler, P.E.,
Transportation Planning Engineer
City of Springfield
CC: Collin McArthur
Cameron McCarthy Landscape Architects
FROM: Dan Haga, P.E.,
Damien Gilbert, P.E.
RE: Transportation Planning Rule Analysis:
Thurston Hills Natural Area Site
In an effort to analyze the Transportation Planning Rule (TPR) criteria for a potential “significant
affect to an existing or planned facility” identified in the Oregon Administrative Rules for zone
changes and comprehensive plan amendments contained in and as applicable per OAR 660-012-
0060(1), I am supplying this memorandum which summarizes the potential for a de-intensification
of use associated with the subject land use applications by comparison to the potential for
development with the existing zoning and plan designations. The applicant is seeking to change the
zoning and metro plan designation on the site within the City of Springfield’s Urban Growth
Boundary (UGB) and zoning jurisdiction to allow uses consistent with the City of Springfield’s
codified public land and open space zoning district and parks and open space plan designation to be
in compliance with current applicable statewide land use regulations.
Background Conditions
The subject property and land use applications affect tax lots 3500, 3602 and 3604 of tax map 17-
02-35-00; tax lots 100, 400, and 401 of 18-02-02-00; tax lots 600 and 602 of tax map 18-02-03-00;
tax lot 100 of 18-02-09-00, and; tax lot 100 of 18-02-10-00. The total mapped taxlot area of the site
includes approximately 666.10 acres, with approximately 442.36 acres planned to be rezoned and
redesignated within the City of Springfield’s Urban Growth Boundary and zoning jurisdictional area.
The existing zoning of the land within the City UGB is low density residential with a low density
residential metro plan designation. On the southwest portion of the site there is approximately
11.56 acres of tax lot 602 of map 18-02-03-00 within the City of Springfield UGB is currently zoned
for light medium industrial uses and designated on the metro plan for low density residential future
use.
Attachment 3, Page 48 of 101
Willamalane THNA TPR (16-213)
December 7, 2016
Branch Engineering, Inc. 2
The property consists of significant topographical constraints (slopes that exceed 25 percent) that
prohibit development potential to the maximum permitted density of 14 single family dwellings
units per acre in the existing LDR zone and low density residential designation’s codified land use
permissions. The hillside development overlay district would apply to areas of the site with slopes
between 25 and 35 percent, and would increase the minimum lot size in such areas to 20,000 square
feet, or approximately 2 units/acre. As a worst case development scenario, the LDR base zone and
low density residential designation standards of SDC 3.2-205 with an assumed density of 10
units/acre would be applicable to approximately 159.08 acres of buildable land on the site that
could result in a potential development of up to 1,591 residential single family dwelling units in a
development scenario. SDC 3.2-205 indicates a minimum development density of 6 units per acre
and a maximum development density of 14 units per acre with the existing LDR base zoning and low
density residential use designation.
The light-medium industrial zoned land in the southwest portion of the site that occupies
approximately 11.56 acres of tax lot 100 of map 18-02-09-00 within the City of Springfield UGB
could potentially be developed with a light-medium industrial use per City of Springfield
Development Code, Chapter 3.2-400. The metro plan designation of this area is low density
residential as shown on the metro plan diagram.
Proposed Land Use and Developed Conditions
Willamalane is seeking land use approvals to change the zoning on the site within the City of
Springfield UGB and zoning jurisdictional area to the City of Springfield’s Public Land and Open
Space Zone and to change the Metro Plan Diagram’s designation of that same portion of the site to
the Metro Plan’s Parks and Open Space designation. The rezoning and redesignation of the land will
preserve the land’s natural features and allow trailhead(s) to be constructed in the future for the
planned park and natural area use. Willamalane has identified the site in their October 2012 Park
and Recreation Comprehensive Plan. References to the site’s use as a park include Willamalane’s
Thurston Hills Natural Area (east and west), Thurston Hills Ridgeline Trail, Mountaingate Ridgeline
Trail and the Weyerhaeuser Path. To accommodate the planned use, tax lot 3602 of map 17-02-35-
00 is planned to be annexed into the City of Springfield City Limits and to be developed to serve the
park’s trailhead with parking and public restroom facilities to access trail systems. The land area of
the site subject to the zone change and redesignation is the area of the site within the existing urban
growth boundary, which includes approximately 442.36 acres. A portion of the site’s subject tax lots
are outside of City of Springfield Urban Growth Boundary and are within the Lane County zoning
jurisdiction. The portion of the land on the site outside of the UGB is proposed to remain with Lane
County zoning and Lane County plan designations.
Trip Generation Basis – Existing Conditions
To project and compare trip generation potential of the reasonable worst case development
scenarios the site could support in the existing and proposed zoning and land use designation
scenarios and to demonstrate compliance with Oregon Land Use regulations contained within OAR
660-012-0060(1), a reference was made to the Trip Generation Manual, 9th Edition, published by the
Institute of Transportation Engineers (ITE). For the residential component of the site’s existing
development potential with build-out of single family detached dwelling units (ITE code 210) as
described previously and as allowed by SDC 3.2-200 and related sections of the City of Springfield
Development Code, the site was determined to be capable of supporting approximately 1,591
Attachment 3, Page 49 of 101
Willamalane THNA TPR (16-213)
December 7, 2016
Branch Engineering, Inc. 3
detached dwelling units assuming the existing low density residential metro plan designation is
applicable to the site’s entire estimated buildable area of 159.08 acres. The 159.08 acres of buildable
land includes approximately 8.06 acres (11.56 gross acres within the UGB) on tax lot 100 of
assessor’s map 18-02-09-00 that is currently zoned in the light-medium industrial district and
designated for low density residential uses.
For the site’s existing light-medium industrial zoned land identified on the current City of
Springfield zoning map adjacent to the urban growth boundary (UGB) in the southwest quadrant of
the site on tax lot 100 of assessor’s map 18-02-09-00, a trip generation rate for a general light
industrial use (ITE LUC 110) was applied to the gross land area of 11.56 acres of land inside of the
UGB. The City of Springfield’s schedule of permitted outright use categories in the LMI district is
included in SDC 3.2-410. For the trip generation comparison of worst case development scenarios,
the gross land area of 11.56 acres of LMI zoned land is substituted as 8.06 acres of buildable LDR
designated land area for the Metro Plan amendment evaluation of existing conditions.
Trip Generation Basis – Proposed Conditions
The ITE’s regional park use (ITE LUC 417) is considered the most appropriate land use descriptor
and trip generation rate applicable to the site’s proposed use which requires rezoning and
redesignation of the land. Regional Parks are identified in the City of Springfield’s Schedule of Use
Categories in the Public Land and Open Space (PLO) district, which is contained within SDC 3.2-710.
For the proposed zoning, the City of Springfield Development Code (SDC) section 3.2-710 limits
permitted outright primary uses in the public land and open space zoning district to neighborhood
parks and private areas of greater than 1 acre reserved for open space as part of a cluster or hillside
development. Regional parks are permitted in the Public Land and Open Space zoning district with
special development standards identified in SDC 4.7-200, which specifies that community and
regional public and private parks in the PLO district shall be designated in a Park Facilities Plan
adopted by the City or approved in accordance with Type III review procedure. The planned use of
the site by Willamalane Parks District as a public park has been identified in their October 2012 Park
and Recreation Comprehensive Plan, which has been reviewed and adopted by the City of Springfield
(TYP413-00003). The City of Springfield has accepted the plan as a refinement to the metro plan
with certain conditions of approval. Willamalane’s Park and Recreation Comprehensive Plan satisfies
SDC 4.7-200, which should allow the proposed use of the site as a regional park to be developed as
planned by Willamalane. When completed, trail systems on the site will connect parks and trails in
the Mountaingate neighborhood and a Trail System on the recently acquired Weyerhaeuser Road.
Trip Generation Summary/Comparison
The following table summarizes and compares the potential for PM peak hour trip generation on the
site based on the ITE rates per land use described above for the existing zoning and designations
and for the proposed zoning and designation of the land within the City of Springfield Urban Growth
Boundary:
Attachment 3, Page 50 of 101
Willamalane THNA TPR (16-213)
December 7, 2016
Branch Engineering, Inc. 4
PM PEAK HOUR TRIP GENERATION
Land Use Land
Use
Code
Units QTY
PM Peak
Hour Rate
(trips/unit)
PM Peak
Hour
Trips
Existing Zoning Districts
Single-Family Detached Housing
(159.08-8.06 acres @ 10 units/acre) 210 Dwelling
Units 1,510 1.00 1,510
General Light Industrial
(Tax Lot 100 of Map 18-02-09-00) 110 Gross
Acres 11.56 7.26 84
Total Potential PM peak Hour Trips with Existing Zoning: 1,594
Existing Metro Plan Diagram Designation
Single-Family Detached Housing
(159.08 acres @ 10 units/acre) 210 Dwelling
Units 1,591 1.00 1,591
Total Potential PM peak Hour Trips with Existing Metro Plan Designations: 1,591
Proposed Park Use Designation and Public Land and Open Space Zoning
Regional Park
(gross land area in UGB) 417 Acres 442.36 0.20 88
Total Potential PM peak Hour Trips Proposed Zoning and Metro Plan Designations: 88
In the following table, the average daily traffic generation is calculated based on the projected
existing and proposed uses.
Average Daily Trip Generation
Land Use Land
Use
Code
Units QTY Daily Rate
(trips/unit)
ADT
trips
Existing Zoning and District
Single-Family Detached Housing
(159.08-8.06 acres @ 10 units/acre) 210 Dwelling
Units 1,510 9.52 14,375
General Light Industrial
(Tax Lot 100 of Map 18-02-09-00) 110 Gross
Acres 11.56 51.80 599
Total Potential ADT with Existing Zoning: 14,974
Existing Metro Plan Diagram Designation
Single-Family Detached Housing 210 Dwelling
Units 1,591 1.00 15,146
Total Potential ADT with Existing Metro Plan Designations: 15,146
Proposed Park Use Designation and Public Land and Open Space Zoning
Regional Park
(gross land area within UGB) 417 Acres 442.36 4.57 2,022
Total Potential ADT with Proposed Zoning and Metro Plan Designation: 2,022
Attachment 3, Page 51 of 101
Willamalane THNA TPR (16-213)
December 7, 2016
Branch Engineering, Inc. 5
As shown in the tables, the proposal to change the zoning and metro plan diagram’s permitted use
designations on the site would significantly reduce the site’s trip generation potential of the land.
It should be noted that an average daily trip generation of 2,022 daily trips is not likely to occur at
the site in the proposed park use and designation with a significant amount of unutilized open
space designated for the natural area that will remain undisturbed and inaccessible. Both the PM
peak hour and ADT trip generation scenarios with the rezone and metro plan amendment are based
on the site’s gross area within the UGB. Much of the land will remain as open space and will continue
to be relatively inaccessible after the land use applications are approve and the trailhead(s) is [are]
constructed. The ITE surveyed Regional Parks land use sites included amenities such as: hiking trails,
lakes, pools, ball fields, soccer fields, camp sites, picnic facilities and general office space. Some of
the sites were indicated to be primarily used for boating, swimming, hiking or camping. Unlike ITE’s
land use description for its Regional Parks land use and trip generation rates derived therefrom, the
Thurston Hills Natural Area will provide some hiking trails but will be composed mostly of open
space that will preserve existing natural features.
Traffic Conditions and City of Springfield Conceptual Local Street Plan
As planned, a trailhead is will be constructed with an access connection to the City’s Transportation
System via an improved driveway on Main Street. The planned access connection will be on tax lot
3602 of assessor’s map 17-02-35-00 that is planned to be annexed into City limits with the current
land use applications. The City of Springfield maintains a periodically updated Conceptual Local
Street Plan that currently shows several east and west local streets extending through the site from
undeveloped properties to the east and to the west of the site. It appears that one street right-of way
is currently stubbed to the east property boundary shared with tax lot 3604 of assessor’s map 17-02-
35-00 as South A Street.
Willamalane has acknowledged the City of Springfield’s intent to provide relief circulation for the
neighboring properties to the west through the Thurston Hills Natural Area site via a future access
easement in a Memorandum of Understanding, dated August 5, 2016. The City of Springfield has
indicated that an east-west through street connection is desired for potential relief emergency access
to Main Street for the neighborhood currently served by S. 72nd Street. The access easement is
intended to be provided in lieu of the local streets shown on the City of Springfield’s Conceptual
Local Street Plan that will not be necessary to serve development on the site because the proposed
use and designation changes will not result in construction of the previously planned low density
residential uses on the land that would require access to potential new parcel frontages created with
a subdivision application to develop the site with the low density residential uses under the existing
zoning and permitted uses.
Also shown on the Conceptual Local Street Plan and referred to in the City of Springfield’s
Transportation System Plan, a conceptual collector street in the southwest portion of the site would
provide access to low density residential and/or permitted light-medium industrial land uses with
the existing zoning and use permissions and would provide relief circulation to existing properties
and local streets to the north of the site. While the Conceptual Local Street Plan shows only the
collector street and two local streets meandering through the site’s affected properties, the TSP
shows several future additional local streets connecting to the conceptual collector roadway,
presumably to provide access to the land if it were to be divided into parcels and developed
consistent with the City’s Development Code criteria for the existing low density residential
designation. The TSP refers to several projects in the area, including project # R-45, which is
generally identified as “Improvements within the Jasper-Natron Area”; R-46, referred to as “Bob
Straub Parkway to Mountaingate Drive”; R-47, which is the “Haul Road – Mt Vernon to UGB” project,
Attachment 3, Page 52 of 101
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December 7, 2016
Branch Engineering, Inc. 6
and; PB-46, which is referred to as the “Haul Road Path – South 49th Place to UGB”. While the primary
concern is the collector street and two local streets that are sketched in crossing the site in this area
provided in the TSP associated with projects R-45 and R-47, the exact locations are generally
considered schematic and the actual street locations would typically be positioned with centerline
alignments on existing or planned future property lines where topographical and natural features
will allow the development potential of the affected properties to be maximized and to minimize
impacts to land owners. The location shown in the TSP and on the Conceptual Local Street Plan does
not appear to be positioned on an existing or planned future property line on the site. These
schematic street locations could be necessary if the site were to be developed with low density
residential uses in a subdivision application, but these streets are not necessary to serve the
proposed public land/parks and open space uses on the site or to serve the immediately adjacent
neighboring properties fronting the potential street locations. The additional collector street project
identified as project R-46 of the TSP would extend Mt Vernon Road to Mountaingate Dr. and an
additional local street connection between that collector and properties to the north of the site do
not need to pass through the site to provide the necessary relief circulation and local street access to
existing adjacent properties.
The pedestrian path project identified in the TSP as P-46 and the Haul Road project identified as
Project R-47 are located on property lines and their potential for construction in the future is not
prohibited by the proposed land use applications. The future project involving improvements to the
Haul Road and a multi-use path could be enhanced by an additional Willamalane Park Trailhead
located on this portion of the site, should the applicant choose to develop one in the future.
Traffic Impact Analysis Criteria
Per City of Springfield Development Code, Section 4.7-200 (B)(4) a traffic impact and parking analysis
shall be prepared by a traffic engineer and approved by the City Engineer for Public and Private Park
uses in the Public Land and Open Space District. A traffic impact analysis would be required at the
time the property is developed with the park use, however; early coordination with the City of
Springfield’s Transportation Planning Engineering staff indicated that the City would likely waive the
TIA requirement for development of a park use since the park use is a relatively low trip generator
and the City’s trip generation threshold of 100 peak hour trips per SDC 4.2-105(A)(4)(a) would not be
exceeded by development of the site with permitted uses and the proposed zoning and use
designations. The previous trip generation section provided an analysis of the reasonable worst case
trip generation based on the total land area within the UGB subject to the proposed rezoning and
metro plan amendment and development on the site consist with a regional parks land use. The trip
generation section concluded that the park use could generate up to 88 PM peak hour trips based on
the gross land area of 442.36 acres of land within the UGB, and a traffic study would not typically be
required if it were a land use other than a park use were the trip generator. It should be noted that
the buildable land identified on the site is estimated at approximately 159.08 acres, and that this
area or the area of tax lot 3602 (3.03 gross acres) that is planned to be annnexted into the City limits
of Springfield should be the only area considered for the traffic impact analysis applicability criteria,
as much of the land will remain open space and inaccessible after the park use is established on the
site. Unlike ITE’s trip generation rate and its Regional Parks land use description, the site will not be
developed with amenities such as: pools, ball fields, soccer fields, camp sites, or general office space,
and the site is not primarily used for boating, swimming, hiking or camping. The Thurston Hills
Natural Area will be mostly composed of open space and preservation of natural features and will
provide some hiking trails.
Attachment 3, Page 53 of 101
Willamalane THNA TPR (16-213)
December 7, 2016
Branch Engineering, Inc. 7
Transportation Planning Rule Significant Effect Criteria
Oregon Administrative Rule (OAR) 660-012-0060 Plan and Land Use Regulation Amendments, states:
(1) If an amendment to a functional plan, an acknowledged comprehensive plan, or a land use
regulation (including a zoning map) would significantly affect an existing or planned transportation
facility, then the local government must put in place measures as provided in section (2) of this rule,
unless the amendment is allowed under section (3), (9) or (10) of this rule. A plan or land use
regulation amendment significantly affects a transportation facility if it would:
(a) Change the functional classification of an existing or planned transportation facility
(exclusive of correction of map errors in an adopted plan);
(b) Change standards implementing a functional classification system; or
(c) As measured at the end of the planning period identified in the adopted transportation
system plan:
(A) Types or levels of travel or access that are inconsistent with the functional
classification of an existing or planned transportation facility;
(B) Degrade the performance of an existing or planned transportation facility such
that it would not meet the performance standards identified in the TSP or
comprehensive plan; or
(C) Degrade the performance of an existing or planned transportation facility that is
otherwise projected to not meet the performance standards identified in the TSP or
comprehensive plan.
OAR 660-12-0060(1) is found to be satisfied, as the proposed zone change and metro plan
amendment would result in a de-intensification of use, as the PM peak hour and daily trip generation
associated with the proposed use is a reduction of the potential that would be generated by the site
if it were developed under codified land use permissions associated with the existing zoning and
metro plan designation. Therefore; the proposal to rezone and redesignate the land would not result
in a change to the functional classification of an existing or planned transportation facility as
identified (1)(a); would not change the standards implementing a functional classification system as
identified in (1)(b), and; would not have any identifiable significant affects to the transportation
plan’s horizon year conditions as identified in (1)(c)(A)-(C). The applicability of future street
connections provided on the City of Springfield’s Conceptual Local Street Plan was discussed and it
was determined that the level of access and circulation provided by one collector roadway identified
as project R-46 in the TSP that would connect Mountaingate Drive to Mt Vernon Road and a local
street extending from that collector roadway into adjacent neighboring properties would be
adequate to serve local adjacent land uses. The additional collector roadway and local streets
identified in TSP projects R-45 and R-47 and as shown on the Conceptual Local Street Plan are not
necessary with the proposed change in land use permissions on the site associated with the land use
applications that will rezone the land to the public land and open space district and redesignate the
to a parks and open space designation on the affected site properties.
The trip generation section previously described a significant decrease in the site’s trip generation
potential in the comparison of the reasonable worst case development scenarios of the existing
zoning and metro plan designation to the proposed public land and open space (POS) zone and
parks and open space (POS) metro plan use designation. The trip generation of the site included
Attachment 3, Page 54 of 101
Willamalane THNA TPR (16-213)
December 7, 2016
Branch Engineering, Inc. 8
extensive open space as gross acreage for the proposed use that would not otherwise be considered
developed or developable land on the site.
Conclusion
The trip generation levels associated with the reasonable worst case development scenario of the
proposed conditions were not found to have an identifiable “significant affect” defined by OAR 660-
012-0060(1) since the site generated traffic with the proposed public land and open space zoning
and parks and open space metro plan use designation was shown to be significantly lower than the
potential reasonable worst case development scenario of the existing zoning (LDR and LMI) and
metro plan designations (low density residential and light medium industrial).
The City may waive the requirement for traffic impact and parking studies for the potential park use
on the site required by SDC 4.7-200 (B)(4) and SDC 4.6-125(F) based on the potential trip generation
of less than 100 pm peak hour trips, which is identified as the lower threshold for the number of
peak hour trips generated by a site to determine if a traffic impact analysis is required.
In summary, the Transportation Planning Rule is satisfied under Goal 12 criteria with the proposed
change in use permissions associated with the zone change from LDR and LMI districts to the public
land and open space district and proposed metro plan designation change from low density
residential to parks and open space designation since it was shown that the change in use
permissions would not have a significant affect to a transportation facility as identified in OAR 660-
012-0060(1).
Please do not hesitate to contact me with any questions, or if I can provide any additional assistance.
Attachment 3, Page 55 of 101
WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy FINAL SUBMITTAL | December 23, 2016 Exhibit E
EXHIBIT E
DEEDS
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WILLAMALANE PARK AND RECREATION DISTRICT
THURSTON HILLS NATURAL AREA PARK
METRO PLAN AMENDMENT AND ZONING MAP AMENDMENT APPLICATION
Cameron McCarthy FINAL SUBMITTAL | December 23, 2016 Exhibit F
EXHIBIT F
THURSTON HILLS NATURAL AREA PARK
MOU
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Good Evening Andy.
We live at 7291 Holly Street and our property backs directly up to the project site.
Although we appreciate how the land is being used, we have concerns about the
proximity of the trails to our house.
Do you have any insight on where the trails will be, and if so do you expect our home to
be visible from the trails?
Thank you
Dave and Kelly Moore
Attachment 4, Page 1 of 1
BEFORE THE PLANNING COMMISSION OF SPRINGFIELD, OREGON
ORDER AND RECOMMENDATION FOR:
TYPE I AMENDMENT TO THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL PLAN ] TYP417-00001
(METRO PLAN) DIAGRAM TO REDESIGNATE APPROXIMATELY 421 ACRES IDENTIFIED AS ]
ASSESSOR’S MAP 17-02-35-00, TAX LOTS 3500, 3602 & 3604; MAP 18-02-02-00, TAX LOTS ]
100, 400 & 401; MAP 18-02-03-00, TAX LOTS 600 & 602; MAP 18-02-09-00, TAX LOT 100; ]
AND MAP 18-02-10-00, TAX LOT 100 FROM LOW DENSITY RESIDENTIAL (LDR) TO ]
PARKS AND OPEN SPACE ]
NATURE OF THE PROPOSAL
Staff is requesting that the Springfield Planning Commission forward a recommendation of approval to the
Springfield City Council regarding the following proposed Type I amendment to the Metro Plan Diagram:
Redesignate approximately 421 acres of property, including 7575 McKenzie Highway and nine adjoining
parcels to the south and southwest of McKenzie Highway and east of Weyerhaeuser haul road, from Low
Density Residential to Parks and Open Space. The subject property is generally depicted and more particularly
described in Exhibit A to this Order.
Timely and sufficient notice of the public hearing has been provided, pursuant to SDC 5.2-115.
On June 6, 2017, the Springfield Planning Commission held a joint work session and a public hearing with the Lane
County Planning Commission on the proposed Metro Plan Diagram amendment. The staff report, written
comments, and testimony of those who spoke at the public hearing were entered into the record.
CONCLUSION
On the basis of this record, the proposed Type I Metro Plan Diagram amendment is consistent with the criteria of
SDC 5.14-135. This general finding is supported by the specific findings of fact and conclusion in the Staff Report
and Findings and the additional information submitted for the June 6, 2017 public hearing.
ORDER/RECOMMENDATION
It is ORDERED by the Springfield Planning Commission that approval of Case Number TYP417-00001 be GRANTED
and a RECOMMENDATION for approval be forwarded to the Springfield City Council for their consideration at an
upcoming public hearing meeting.
____________________________ ____________________
Planning Commission Chairperson Date
ATTEST
AYES:
NOES:
ABSENT:
ABSTAIN:
Attachment 5, Page 1 of 1
BEFORE THE PLANNING COMMISSION OF SPRINGFIELD, OREGON
ORDER AND RECOMMENDATION FOR:
AMENDMENT TO THE SPRINGFIELD ZONING MAP TO REZONE APPROXIMATELY 410.5 ACRES ] TYP317-00003
OF LAND IDENTIFIED AS ASSESSOR’S MAP 17-02-35-00, TAX LOTS 3500, 3602 & 3604; MAP ]
18-02-02-00, TAX LOTS 100, 400 & 401; MAP 18-02-03-00, TAX LOTS 600 & 602; AND MAP ]
18-02-10-00, TAX LOT 100 FROM LOW DENSITY RESIDENTIAL (LDR) TO PUBLIC LAND AND ]
OPEN SPACE (PLO); AND TO REZONE APPROXIMATELY 10.7 ACRES OF LAND IDENTIFIED AS ]
ASSESSOR’S MAP 18-02-09-00, TAX LOT 100 FROM LIGHT MEDIUM INDUSTRIAL (LMI) TO PLO ]
NATURE OF THE PROPOSAL
Staff is requesting that the Springfield Planning Commission forward a recommendation of approval to the
Springfield City Council regarding the following proposed amendments to the Springfield Zoning Map:
Rezone approximately 410.5 acres of property, including 7575 McKenzie Highway and eight adjoining parcels
to the south and southwest of McKenzie Highway and east of Weyerhaeuser haul road, from Low Density
Residential (LDR) to Public Land and Open Space (PLO). The subject property is generally depicted and more
particularly described in Exhibit A to this Order.
Rezone a 10.7 acre parcel located immediately east of and adjacent to Weyerhaeuser haul road (Map 18-02-
09-00, Tax Lot 100) from Light Medium Industrial (LMI) to Public Land and Open Space (PLO). The subject
property is generally depicted and more particularly described in Exhibit B to this Order. The subject Zone
Change request is being processed concurrently with a Metro Plan Diagram amendment initiated by Planning
Case TYP417-00001.
Timely and sufficient notice of the public hearing has been provided, pursuant to SDC 5.2-115.
On January 24, 2017, the Springfield Planning Commission held a work session and a public hearing on the
proposed Zoning Map amendment. The staff report, written comments, and testimony of those who spoke at the
public hearing were entered into the record.
CONCLUSION
On the basis of this record, the proposed Zoning Map amendment is consistent with the criteria of SDC 5.22-115.
This general finding is supported by the specific findings of fact and conclusion in the Staff Report and Findings
and the additional information submitted for the January 24, 2017 public hearing.
ORDER/RECOMMENDATION
It is ORDERED by the Springfield Planning Commission that approval of Case Number TYP316-00005 be GRANTED
and a RECOMMENDATION for approval be forwarded to the Springfield City Council for their consideration at an
upcoming public hearing meeting.
____________________________ ____________________
Planning Commission Chairperson Date
ATTEST
AYES:
NOES:
ABSENT:
ABSTAIN:
Attachment 6, Page 1 of 1
5/15/17 – DRAFT MOU
DRAFT – AMENDMENT TO MEMORANDUM OF UNDERSTANDING (Thurston Hills Natural
Area) – Page 1
AMENDMENT TO THE
MEMORANDUM OF UNDERSTANDING
THURSTON HILLS NATURAL AREA
FOR JESSICA DRIVE
EFFECTIVE DATE: ____________________, 2017
WHEREAS, the City of Springfield (City), a municipal corporation of the state of
Oregon, and Willamalane Park and Recreation District (Willamalane), a special district of
the state of Oregon, entered into a Memorandum of Understanding (MOU) regarding
development of the Thurston Hills Natural Area on [date], 2016; and
WHEREAS, said MOU recited that portions of the area included within the proposed
Thurston Hills Natural Area park are identified for possible future roadway extensions in
the City’s Transportation System Plan, and the City acknowledged that such extensions
may not be needed given that the Willamalane-owned property will not be developed
for residential uses, but that an access for connectivity and/or public safety purposes
may be required as a condition of approval through the Metro Plan amendment and
zone change process;
WHEREAS, Willamalane has submitted an application to the City to change the land
use designation and zoning of the Thurston Hills Natural Area from Low Density
Residential to Parks and Open Space, TYP417-00001;
WHEREAS, the City has identified a need for emergency secondary access to
residential property adjacent to the Thurston Hills Natural Area, which could have been
provided across Willamalane property if developed for residential uses under the
existing LDR plan designation and zoning, but will not be provided through residential
development if Willamalane’s application for plan amendment and zone change is
approved;
NOW, THEREFORE, in consideration of the foregoing, City and Willamalane agree to
amend the MOU to add a Section K as follows:
K. Willamalane agrees to work with the City of Springfield and any adjoining
property owners to provide a secondary emergency access corridor for
Jessica Drive across the northern section of the Community Forest, as
generally depicted in Exhibit A, which is attached hereto and incorporated
herein by reference. This access corridor is intended to preserve the
development potential of properties affronting the Community Forest that
may require secondary access as depicted on the City’s conceptual local
street map. This corridor may be deemed unnecessary if another form of
Attachment 7, Page 1 of 2
5/15/17 – DRAFT MOU
DRAFT – AMENDMENT TO MEMORANDUM OF UNDERSTANDING (Thurston Hills Natural
Area) – Page 2
secondary access can be provided to allow for the development or the
adjoining properties.
Except as amended herein, all other terms and conditions of the MOU shall remain in
full force and effect.
CITY OF SPRINGFIELD: WILLAMALANE:
By and through its designated official By and through its designated official
By ______________________________ By ______________________________
Title: Title:
Date ____________________________ Date ____________________________
City Contact: Willamalane Contact:
Gino Grimaldi, City Manager Vincent Martorello, Superintendent
City of Springfield Willamalane Park and Recreation District
225 Fifth Street 250 South 32nd Street
Springfield, OR 97477 Springfield, OR 97478
(541) 726-3700 (541) 736-4544
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