HomeMy WebLinkAbout2017 09 06 AIS for Willamalane Zoning Map AmendmentAGENDA ITEM SUMMARY Meeting Date: 9/6/2017 Meeting Type: Regular Meeting
Staff Contact/Dept.: Andy Limbird, DPW
Staff Phone No: 541-726-3784 Estimated Time: 20 Minutes
S P R I N G F I E L D PLANNING COMMISSION Council Goals: Promote and Enhance our Hometown Feel while Focusing on Livability and Environmental Quality ITEM TITLE: ZONING MAP AMENDMENT – REZONE APPROXIMATELY 4.87 ACRES OF VACANT
LAND FROM HEAVY INDUSTRIAL (HI) TO COMMUNITY COMMERCIAL (CC) AND
LOW DENSITY RESIDENTIAL (LDR) TO CORRECT A DISCREPANCY BETWEEN THE CURRENT ZONING AND THE COMPREHENSIVE PLAN DESIGNATION
ACTION
REQUESTED:
Conduct a public hearing and deliberations, and approve, approve with amendments, or deny a
request for Zoning Map Amendment from Heavy Industrial (HI) to a combination of Community Commercial (CC) and Low Density Residential (LDR).
ISSUE STATEMENT: Willamalane Park & Recreation District is requesting a Zoning Map Amendment for a 4.87-acre property (a segment of the former Weyerhaeuser haul road) from HI to CC and LDR.
ATTACHMENTS: 1. Staff Report and Findings for Zoning Map Amendment
2. Application and Exhibits
3. PC Final Order – Zoning Map Amendment Request 811-17-000049-TYP3
DISCUSSION:
The property requested for Zoning Map Amendment is a linear, 4.87-acre parcel that runs south of Main Street near the intersection with South 48th Street to the convergence with the Booth-Kelly Road south of Daisy Street. The linear property represents an extension of the Weyerhaeuser haul
road that provided dedicated log truck access to the wood products and paper manufacturing complex operated by International Paper and (formerly) Sierra Pine.
The applicant is requesting a Zoning Map amendment to correct a plan/zone conflict between the current zoning of Heavy Industrial and the comprehensive plan designations of Community
Commercial and Low Density Residential depicted in the adopted East Main Refinement Plan
diagram. The Zoning Map amendment also would allow for surplus portions of the former haul road parcel to be incorporated into the Westwind Phase 2 residential subdivision, and for a
developable commercial parcel to be created at the intersection of Main and South 48th Streets. The linear property is vacant and not currently assigned a street address (Assessor’s Map 17-02-32-00, Tax Lot 100). The public hearing for this application is scheduled for Wednesday September
6, 2017. Staff observes that the current zoning for the property (Heavy Industrial) is incongruous with the
adjacent commercial and residential zoning in the immediate vicinity. Because the bulk of the property is identified as a future street and multi-use pathway corridor that extends south of Main Street and Daisy Street to the Booth-Kelly Road, the rezoning action would bring the property into
conformity with the Refinement Plan diagram. For this reason, the request for Zoning Map Amendment can be reviewed on its own merits as a correction to a discrepancy between the current
zoning and the adopted comprehensive plan designation.
Staff Report and Findings Planning Commission Zone Change Request (Willamalane Park & Recreation District)
Hearing Date: September 6, 2017 Case Number: 811-17-000049-TYP3 Applicant: City of Springfield and Willamalane Park & Recreation District
Property Owner: Willamalane Park & Recreation District
Site: Adjacent to South 48th Street between Main Street and the Y-intersection with the Booth-Kelly Road South of Daisy Street (Map 17-02-32-00, Tax Lot 100)
Request Rezone Tax Lot 100 from Heavy Industrial (HI) to Community Commercial (CC) and Low Density Residential
(LDR) to correct a plan/zone conflict.
Site Information/Background The application was submitted on June 9, 2017 and the public hearing on the matter of the Zone Change request is scheduled for September 6, 2017. The City conducted a Development Review Committee meeting on the Zone Change request on June 27, 2017.
The property that is subject of the Zone Change request is a segment of the former Weyerhaeuser haul road that extends southward from Main Street to a confluence with the Booth-Kelly Road south of Daisy Street. The linear
property is approximately 4.8-acres in extent and is currently zoned Heavy Industrial (Figure 1). The Assessor’s description of the affected property is Map 17-02-32-00, Tax Lot 100, and because it is a former private industrial road the property does not have an assigned street address.
Portions of the former Weyerhaeuser haul road parcel are proposed for extension of South 48th Street to an
intersection with Daisy Street, and installation of a multi-use pathway adjacent to the public street. A small portion
of the former haul road between Aster Street and Daisy Street is proposed for transfer to Hayden Homes to facilitate construction of the Westwind Phase 2 subdivision (tentatively approved May 12, 2017, Case TYP217-
00012). The adopted East Main Refinement Plan designates the subject property for a combination of Mixed
Use/Community Commercial (segment between Main Street and Aster Street) and Low Density Residential (the remaining segment south of Aster Street) as depicted in Figure 2 below. Because the current Heavy Industrial
zoning is not consistent with the comprehensive plan designation, a plan/zone conflict exists. The requested
Zoning Map amendment would bring the property into conformity with the adopted Refinement Plan and allow for its use for planned residential, transportation, and recreational projects to serve the neighborhood and community.
Staff advises that the scope of the Zoning Map amendment has been expanded from the applicant’s initial submittal, which only affected the segment between Aster Street and Daisy Street. Instead, staff is recommending
that the full length of Tax Lot 100 from Main Street to the intersection with Booth-Kelly Road is rezoned to be consistent with the comprehensive plan designation.
Notification and Written Comments Notification of the September 6, 2017 Planning Commission public hearing was sent to all property owners and
residents within 300 feet of the site on August 15, 2017. Notification was also published in the August 21 and 28,
2017 editions of The Register Guard. Staff posted public hearing notices in the City Hall lobby, on the Development & Public Works Department digital display, and four places along the property: at the intersection of South 48th and
Main Street; at the intersection of South 48th and Aster Street; and on the north and south sides of Daisy Street at the
former Weyerhaeuser road crossing. No telephone calls or written comments were received. Figure 1 – Extract from Springfield Zoning Map
Attachment 1, Page 1 of 8
Low Density Residential Community Commercial
Medium Density Residential Heavy Industrial
High Density Residential Public Land and Open Space
Figure 2 – Extract from East Main Refinement Plan diagram S 49th Pl Aster St
Daisy St
Main St S 47th St Subject
Property
Camellia St
Bluebelle Way S 48th St Attachment 1, Page 2 of 8
Criteria of Approval
Subject Property
Attachment 1, Page 3 of 8
Section 5.22-100 of the 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. 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 Submittal: "The Metro Plan diagram shows the area as Low Density Residential and this
application will rezone the site to the same. The Metro Plan policies applicable to this rezoning application are as follows:
‘Chapter III, A.2: Residentially designated land within the UGB should be zoned consistent with the Metro Plan and applicable plans and policies; however, existing agricultural zoning may be continued
within the area between the city limits and the UGB until rezoned for urban uses.’
The area is designated as Low Density Residential in the Metro Plan; therefore, the proposed zone change
from HI to LDR meets this criterion.”
Finding 1: As stated above, City staff has expanded the scope of the zone change to include the entire
length of the former Weyerhaeuser haul road parcel. The current owner of the property, Willamalane Park & Recreation District, has provided written concurrence for the Zoning Map amendment to all of Tax Lot 100. Therefore, additional Metro Plan policies are applicable to the site as noted below.
Finding 2: Metro Plan Policy B.6, Page III-B-4 states: “Increase the amount of undeveloped land zoned for light industrial and commercial uses correlating the effective supply in terms of suitability and
availability with the projections of demand.” Finding 3: Metro Plan Policy B.16, Page III-B-5 states: “Utilize processes and local controls, which
encourage retention of large parcels or consolidation of small parcels of industrially or commercially zoned land to facilitate their use or reuse in a comprehensive rather than piecemeal fashion.”
Attachment 1, Page 4 of 8
Finding 4: Metro Plan Policy B.24, Page III-B-6 states: “Continue to evaluate other sites in and around Springfield and Eugene for potential light-medium industrial and special light industrial uses, as well as
potential residential uses.”
Finding 5: Consistent with the Metro Plan policies, the proposed rezoning of the linear property would
create a site with Community Commercial (CC) zoning on the west side of South 48th Street between Main
Street and Aster Street. Upon rezoning, this property would be eligible for consolidation with the adjoining property to the west (also zoned CC) thereby creating a more viable development site.
Finding 6: Consistent with the Metro Plan policies, the proposed rezoning of the linear property would create a corridor of residentially-zoned land that can be more readily integrated with the existing
neighborhood. Portions of the residentially-zoned area are proposed for incorporation into a recently-
approved subdivision (Westwind Phase 2) and the remainder would provide for future transportation corridors (extension of South 48th Street and provision of a multi-use pathway).
2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development Plans and functional plans; Applicant’s Submittal: “The site falls within the East Main Refinement Plan. The Plan lists the area as
Low Density Residential; therefore, the proposed rezoning is in compliance with this criterion.”
Finding 7: The subject property is within the adopted East Main Refinement Plan area as depicted on Figure 2 above. The Refinement Plan diagram depicts the majority of the linear property with LDR zoning
designation and the portion between Aster Street and Main Street with “Mixed Use 2 & 3”.
Finding 8: The Mixed-Use Element, Policies 2A and 2B, of the East Main Refinement Plan states:
2A) The following land uses are allowed under Community Commercial zoning:
- Medium and High Density Residential
- All Community Commercial uses subject to Article 18 [Note: now Article 3.2-300] of the Springfield Development Code.
2B) All properties shall be legislatively rezoned to Community Commercial except as stated in Section D below.
Finding 9: The Commercial Element, Policies 1 and 2, of the East Main Refinement Plan states: 1) Where safe and efficient vehicular access can be provided, encourage the development of
neighborhood or small commercial shopping centers at the intersections of collector streets and Main Street.
2) Apply site-specific Commercial refinement plan designation to clearly define the limits of new
commercial uses where there is not an existing, legally established, and beneficial mixing of uses.
Finding 10: Consistent with provisions of the adopted Refinement Plan, staff is recommending that the segment of former Weyerhaeuser haul road between Aster Street and Main Street is rezoned from Heavy
Industrial to Community Commercial. Changing the subject area to Community Commercial zoning would
implement the policies of the adopted Refinement Plan, allow for potential consolidation of the area with adjoining commercial properties, and provide for the highest and best use for the currently vacant land.
Finding 11: The Springfield 2035 Transportation System Plan (TSP) is the functional refinement to the Metro Plan dealing specifically with transportation facilities and Springfield’s compliance with statewide
planning Goal 12. The proposed zone change from HI to CC and LDR is consistent with, and does not alter the TSP’s policies and projects, and is therefore consistent with the TSP.
Attachment 1, Page 5 of 8
Finding 12: The extension of South 48th Street south to Daisy Street is identified as a planned collector street connection on the City’s Conceptual Street Map and is a 20-year priority (Project R-39) in the
adopted TSP. The future extension of the public street is not reliant on the underlying zoning, so the
proposed action would have no effect on planned transportation improvements in the area.
Finding 13: The provision of a multi-use pathway along the South 48th Street corridor and continuing along
the former Weyerhaeuser haul road alignment is another long-range priority project identified in the City’s TSP (Project PB-38) and the Willamalane Comprehensive Plan (Project 4-22). Transportation facilities,
including local and regional off-street pathway connections, are allowable uses in the LDR District.
Therefore, the proposed Zoning Map amendment will have no adverse effect on adopted Refinement Plans, conceptual development plans, and functional plans. Furthermore, the Zoning Map amendment will
facilitate completion of transportation and recreational facility projects listed as priority projects in the TSP
and the Willamalane Comprehensive Plan – which is a refinement plan to the Metro Plan.
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 Submittal: “The majority of the area being rezoned will be developed with roadway and a
stormwater conveyance channel. The portion to be used as residential will be primarily used as yard space. The project site is concurrently undergoing the subdivision process (Westwind Estates 1st Addition, TYP217-00012). Availability of facilities, services and transportation networks was addressed in the application, which was approved on May 12, 2017. A brief overview of that application is as follows: As part of the conditions of transfer of the property from Willamalane to the City of Springfield,
improvements to South 48th Street will include a multi-use path on the east side of the street. No houses, new or existing, will front on the South 48th Street extension; therefore, a sidewalk on the west side of the street is unnecessary. Bike lanes will not be needed for connectivity due to the multi-use path. Their
addition would only increase impervious surface and maintenance needs. Intersection improvements will be needed at both Aster Street and Daisy Street; these improvements will be designed by City staff as a roundabout is desired at Daisy Street and merging the multi-use path at Aster Street may require changes
to South 48th Street north of the intersection. The 48th Street channel provides stormwater conveyance. In order to create additional system loops, the Springfield Utility Board will be extending water and electric mainlines from Aster Street to Daisy Street as part of the South 48th Street improvements.”
Finding 14: The property requested for Zone Change has a full range of public utilities and services available on the perimeter and a developed urban transportation network (Main Street, Daisy Street, South
48th Street) along portions of the property frontage. At this point, urban utilities have been requested to serve only the portion proposed for incorporation within the Westwind Phase 2 subdivision area. The
remainder of the property will serve as a transportation (vehicular, bicycle and pedestrian) and potential
utility corridor for the neighborhood. Other utilities (including but not limited to sanitary sewer, storm sewer, and telecommunications) can be extended to the property as future development requirements
dictate.
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.
Finding 15: The requested Zone Change is being undertaken as a correction to a plan/zone conflict
between the current zoning and the plan designations identified in the adopted East Main Refinement Plan. Because the proposed CC and LDR zoning is consistent and compatible with the Metro Plan and the
Attachment 1, Page 6 of 8
adopted East Main Refinement Plan land use designation, a Metro Plan diagram amendment is not required or warranted. Therefore, the criterion to comply with SDC 5.14-100 is not applicable.
Finding 16: The Transportation Planning Rule, OAR 660-012-0060(1), requires a local government to put in place certain mitigation measures if an amendment to a land use regulation (including a zoning map
amendment) would “significantly affect” an existing or planned transportation facility. OAR 660-012-0060
(9) provides that the “local government may find that an amendment to a zoning map does not significantly affect an existing or planned transportation facility” if all the requirements in subsections (a)-(c) are met.
Finding 17: OAR 660-012-0060 (9)(a) requires that the proposed zoning map amendment be consistent with the existing comprehensive plan map designation, and the map amendment does not change the
comprehensive plan map. As found above, the proposal brings the property into compliance with the
Refinement Plan diagram.
Finding 18: OAR 660-012-0060 (9)(b) requires that the local government has an acknowledged Transportation System Plan (TSP) and that the proposed zoning map amendment is consistent with the TSP. The Springfield 2035 TSP was acknowledged by DLCD, and the proposed zone change is consistent
with the TSP, and does not adversely affect TSP policies or projects. Staff finds that the proposed zone change could facilitate completion of one or more priority projects listed in the TSP.
Finding 19: OAR 660-012-0060 (9)(c) requires that the area subject to the proposed zoning map amendment not be subject to an exemption from the TPR standards pursuant to a prior UGB amendment or
TSP amendment to account for urbanization of the area. The subject site is within the Springfield UGB and
city limits, so this criterion is not applicable.
Finding 20: Because the proposed zoning map amendment meets all the criteria of OAR 660-012-
0060(9)(a)-(c), the proposed amendment does not “significantly affect” an existing or planned transportation facility under OAR 660-012-0060(1), and no mitigation measures under that rule are
required. Therefore, the proposal complies with the Transportation Planning Rule, OAR 660-012-0060.
Conclusion: Based on the above-listed criteria, staff recommends support for the request as the proposal meets the
stated criteria for Zone Change approval in accordance with provisions of the Metro Plan and the Springfield Development Code.
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.
Most of the subject property is a former private industrial road that is designated as a future collector street
extension and multi-use pathway corridor. As such, it is not expected that extensive development will occur on the
property aside from improvements to the existing paved surface and extension of South 48th Street as a collector road. A small portion of the property between Aster Street and Daisy Street is proposed for incorporation into the
backyards of residential lots in the Westwind Phase 2 subdivision area.
The Planning Commission may choose to apply conditions of approval as necessary to comply with the Zone
Change criteria.
Attachment 1, Page 7 of 8
Recommendation The subject application facilitates development and redevelopment of the property with residential and recreational
uses, which cannot be readily achieved with the current Heavy Industrial zoning. Staff advises that the requested
Zoning Map amendment can be reviewed and approved on its own merit because it brings the property into conformity with the adopted East Main Refinement Plan and facilitates completion of projects identified in the
City’s TSP and the Willamalane Comprehensive Plan. For these reasons, staff recommends support for the
requested Zoning Map amendment.
Attachment 1, Page 8 of 8
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LOCATION OF PROPERTY SUBJECT TO PROPOSED ZONE CHANGE
SITE
Attachment 2, Page 11 of 14
SITE CONTEXT MAP FOR PROPOSED ZONING MAP AMENDMENT
SEGMENT OF WEYERHAEUSER ROAD BETWEEN MAIN STREET AND INTERSECTION WITH BOOTH-KELLY ROAD
(ASSESSOR’S MAP 17-02-32-00, TAX LOT 100)
Weyerhaeuser Road
Property
Proposed for
Rezoning 31st Street S 48th St S 49th Pl Main Street
Aster St
Daisy St
Daisy St S 48th St Forsythia Dr S 47th St S 46th St Bluebelle Way
Camellia St S 51st Pl Attachment 2, Page 12 of 14
CURRENT ZONING
FORMER WEYERHAEUSER HAUL ROAD (ASSESSOR’S MAP 17-02-32-00, TAX LOT 100)
Low Density Residential (LDR) Community Commercial (CC)
Medium Density Residential (MDR) Light Medium Industrial (LMI)
High Density Residential (HDR) Heavy Industrial (HI)
Public Land and Open Space (PLO)
SUBJECT AREA
Attachment 2, Page 13 of 14
PROPOSED REZONING (STAFF RECOMMENDATION)
Low Density Residential (LDR) Community Commercial (CC)
Medium Density Residential (MDR) Light Medium Industrial (LMI)
High Density Residential (HDR) Heavy Industrial (HI)
Public Land and Open Space (PLO)
Attachment 2, Page 14 of 14
BEFORE THE PLANNING COMMISSION OF SPRINGFIELD, OREGON
ORDER FOR:
AMENDMENT TO THE SPRINGFIELD ZONING MAP TO REZONE APPROXIMATELY ] 811-17-000049-TYP3
4.8 ACRES OF LAND IDENTIFIED AS ASSESSOR’S MAP 17-02-32-00, TAX LOT 100 ]
FROM HEAVY INDUSTRIAL TO LOW DENSITY RESIDENTIAL (LDR) AND COMMUNITY ]
COMMERCIAL (CC) ]
NATURE OF THE APPLICATION
Rezone an approximately 4.8 acre segment of the former Weyerhaeuser haul road between Main Street and the
intersection with the Booth-Kelly Road south of Daisy Street (Map 17-02-32-00, Tax Lot 100) from Heavy Industrial
(HI) to Low Density Residential (LDR) and Community Commercial (CC). 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 September 6, 2017, the Springfield Planning Commission held a public hearing and conducted deliberations 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,
attached hereto as Exhibit B, and the additional information submitted for the September 6, 2017 public hearing.
ORDER/RECOMMENDATION
It is ORDERED by the Springfield Planning Commission that approval of Case Number 811-17-000049-TYP3, Zoning
Map Amendment, be approved. This ORDER was presented to and approved by the Planning Commission on
September 6, 2017.
____________________________ ____________________
Planning Commission Chairperson Date
ATTEST
AYES:
NOES:
ABSENT:
ABSTAIN:
Attachment 3, Page 1 of 1