HomeMy WebLinkAboutOrdinance 6395 01/22/2019 CITY OF SPRINGFIELD, OREGON
ORDINANCE NO. 6395 (GENERAL)
AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL
PLAN (METRO PLAN) DIAGRAM BY REDESIGNATING APPROXIMATELY 1.0 ACRES OF LAND
FROM LOW DENSITY RESIDENTIAL (LDR) TO MEDIUM DENSITY RESIDENTIAL (MDR);
CONCURRENTLY AMENDING THE GATEWAY REFINEMENT PLAN DIAGRAM BY
REDESIGNATING THE SAME APPROXIMATELY 1.0 ACRES OF LAND FROM LDR TO MDR;
CONCURRENTLY AMENDING THE SPRINGFIELD ZONING MAP BY REZONING THE SAME
APPROXIMATELY 1.0 ACRES OF LAND FROM LDR TO MDR; ADOPTING A SEVERABILITY
CLAUSE AND PROVIDING AN EFFECTIVE DATE.
THE CITY COUNCIL OF THE CITY OF SPRINGFIELD FINDS THAT:
WHEREAS, Section 5.14-100 of the Springfield Development Code (SDC) sets forth procedures for
Metro Plan diagram amendments;
WHEREAS, Section 5.14-115.A of the SDC classifies amendments to the Metro Plan diagram for land
inside the Springfield City limits as being Type I Metro Plan amendments that require approval by
Springfield only;
WHEREAS, Section 5.14-125.A of the SDC sets forth procedures for property owners to initiate a Type I
Metro Plan diagram amendment for property under their ownership;
WHEREAS, the applicanVowner of the subject property initiated a Type I Metro Plan diagram
amendment for a single parcel as follows:
Redesignate a parcel comprising approximately 1.0 acres that is addressed as 273 Deadmond
Ferry Road and identified as Assessor's Map 17-03-15-40, Tax Lot 1700 from Low Density
Residential to Medium Density Residential (Planning Case 811-18-000182-TYP4);
WHEREAS, Section 5.22-110 of the SDC sets forth procedures for property owners to initiate an
amendment to the Springfield Zoning Map;
WHEREAS, Section 5.22-110.A.1 sets forth procedures for concurrent amendments to the Metro Plan
diagram and Springfield Zoning Map through the Zoning Map amendment process;
WHEREAS the applicanVowner of the subject property initiated the following Springfield Zoning Map
amendment:
Rezone approximately 1.0 acres of property identified herein as 273 Deadmond Ferry Road
(Assessor's Map 17-03-15-40, Tax Lot 1700), as generally depicted and more particularly
described in Exhibit A to this Ordinance, from Low Density Residential to Medium Density
Residential (Planning Case 811-18-000181-TYP3); and
WHEREAS, on December 4, 2018 the Springfield Planning Commission held a public hearing on the
proposed Metro Plan diagram amendment request and concurrent request for Gateway Refinement Plan
diagram and Zoning Map amendments. The Development & Public Works Department staff report,
including criteria of approval, findings and recommendations, together with the testimony and submittals
of the persons testifying at that hearing, were considered and were made a part of the record of the
proceeding;
Page 1 of 3
WHEREAS, the Planning Commission deliberated on the requests and voted 5 in favor and 0 opposed
with one abstained and one absent to forward a recommendation of approval to the City Council on the
proposed Metro Plan diagram, Gateway Refinement Plan diagram, and Zoning Map amendments;
WHEREAS, on January 7, 2019 the City Council held a public hearing to receive testimony and hear
comments on the proposals;
WHEREAS, The City Council is now ready to take action on these proposals based upon the above
recommendations of the Planning Commission and the evidence and testimony already in the record, as
well as the evidence and testimony presented at this public hearing held in the matter of adopting this
Ordinance amending the Metro Plan diagram, Gateway Refinement Plan diagram, and Springfield
Zoning Map; and
WHEREAS, substantial evidence exists within the record and the findings set forth in Exhibit B, attached
hereto and incorporated herein by reference, that the proposal meets the relevant approval criteria,
NOW, THEREFORE, BASED ON THE FOREGOING FINDINGS, THE COMMON COUNCIL OF THE
CITY OF SPRINGFIELD ORDAINS AS FOLLOWS:
Section 1. The above findings and conclusions are hereby adopted.
Section 2. The staff reports and findings set forth in Exhibit B, Staff Report and Findings
Metro Plan Amendment (Planning Case 811-18-000182-TYP4), and Staff Report and Findings Zoning
Map Amendment(Planning Case 811-18-000181-TYP3), attached hereto and incorporated herein by
reference, are hereby adopted.
Section 3. The Metro Plan diagram designation of the subject property identified as 273
Deadmond Ferry Road (Assessor's Map 17-03-15-40, Tax Lot 1700), more particularly described in
Exhibit A attached hereto and incorporated herein by reference, is hereby amended from Low Density
Residential (LDR)to Medium Density Residential (MDR).
Section 4. The Gateway Refinement Plan diagram designation of the subject property
identified as 273 Deadmond Ferry Road (Assessor's Map 17-03-15-40, Tax Lot 1700), generally
depicted and more particularly described in Exhibit A Map and Legal Description, attached hereto and
incorporated herein by reference, is hereby amended from Law Density Residential (LDR)to Medium
Density Residential (MDR).
Section 5. The Springfield Zoning Map is hereby amended to rezone the subject property
identified as 273 Deadmond Ferry Road (Assessor's Map 17-03-15-40, Tax Lot 1700), generally
depicted and more particularly described in Exhibit A Map and Legal Description, attached hereto and
incorporated herein by reference, from Low Density Residential (LDR) to Medium Density Residential
(MDR).
Section 6. If any section, subsection, sentence, clause, phrase, or portion of this Ordinance is
for any reason held to be invalid or unconstitutional by any court of competent jurisdiction, that portion
shall be deemed a separate, distinct, and independent provision and that holding shall not affect the
validity of the remaining portion of this Ordinance.
Section 7. Notwithstanding the effective date of ordinances as provided by Section 2.110 of
the Springfield Municipal Code 1997, this ordinance shall become effective 30 days from the date of
passage by the City Council and approval by the Mayor or upon the date of acknowledgement as
provided in ORS 197.625, whichever date is later.
Page 2 of 3
ORDINANCE NO.6395
ADOPTED by the City Council of the City of Springfield this 22_day of .y 12019
by a vote of _for and 0 against.
APPROVED by the Mayor of the City of Springfield this_22 day of .lanuary 12019,
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Mayor
ATTEST:
REVIEWED PROVED
(�(` AS TO
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City corder OFFICE O OITV ATTORNEY
Page 3 of 3
ORDINANCE NO. 6395
Exhibit A, Page 1 of 1
EXHIBIT A — Map and Legal Description
PROPERTY REDESIGNATED AND REZONED FROM LOW DENSITY RESIDENTIAL TO MEDIUM DENSITY RESIDENTIAL
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Deadmond Ferry Rd — !
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St Joseph PI
LEGAL DESCRIPTION
Beginning at a point 16.8 feet South 26° 38' East of a point 505.56 feet North 89" 55' West of the Northeast corner of
the William Stevens Donation Land Claim No. 46, in Township 17 South, of Range 3 West of the Willamette Meridian;
thence South 26' 38' East 306.7 feet; thence North 89° 55' West 159.0 feet; thence North 26' 38' West 306.7 feet;
thence South 89'55' East along the South line of county Road No.90, 159 feet to the place of beginning,in Lane County,
Oregon.
ORDINANCE NO. 6395
Exhibit B,Page 1 of 26
Exhibit B
Staff Report and Findings
Springfield City Council
Type I Amendment to the Metro Plan Diagram
Meeting Date: January 7,2019
Case Number: 811-18-000182-TYP4
Applicant: Karl Mueller, Mueller Enterprises LLC on behalf of Moktar Alhemyare
Project Location: 273 Deadmond Ferry Road(Assessor's Map 17-03-15-40,Tax Lot 1700).
Request
The City has received applications for a Type 1 Metro Plan diagram amendment and a concurrent Zoning
Map amendment from a property owner. 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 Springfield Development Code (SDC)
Section 5.14-125.A,an amendment to the Metro Plan diagram can be initiated by a property owner at any
time. In accordance with SDC 5.14-130, the property-owner 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.
The proposed Metro Plan diagram amendment would change the plan designation for an existing one-acre
parcel from Low Density Residential (LDR) to Medium Density Residential (MDR). The proposed
amendment to the Metro Plan diagram would also amend the adopted Gateway Refinement Plan diagram,
which is a refinement plan to the Metro Plan. Concurrent with the comprehensive plan amendment, an
amendment to the Springfield Zoning Map would change the zoning of the property from LDR to MDR.
The proposed plan designation and zoning would allow for duplex, four-plex, townhouse, or apartment
style units, or a combination thereof, as provided by SDC 3.2-200. A nursing home or group care facility
also could be constructed on the property under the proposed zoning and comprehensive plan designation.
According to the applicant's submittal:
"The development objective is to change the Metro Plan/refinement plan designation and zoning
of the subject property from low density to Medium Density Residential. Ultimately, the
applicant would like to develop the subject property with attached single family townhouses.
This type of development is not allowed in the present zoning district. Therefore, the applicant is
submitting concurrent Metro Plan / Refinement Plan and Zone Change applications for the
subject property pursuant to the Springfield Development Code."
The application was submitted on September 28, 2018 and the Springfield Planning Commission held a
public hearing on the proposed Metro Plan diagram, Gateway Refinement Plan diagram, and Zoning Map
amendments on December 4, 2018. The Planning Commission unanimously adopted recommendations
of support for the proposals.
Staff advises that this report differs from the staff report reviewed by the Planning Commission at the
December 4, 2018 meeting. Additional findings and clarification of the Metro Plan policies applicable to
residential land within the City's jurisdiction have been added to Criterion 5.14-135.8(see below).
ORDINANCE NO. 6395
Exhibit B,Page 2 of 26
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 October 2, 2018,
which is 63 days prior to the initial Planning Commission public hearing on the matter.
In accordance with SDC 5.2-110.B, Type IV legislative land use decisions require mailed notification as
well as notice in a newspaper of general circulation. Notification of the December 4, 2018 Planning
Commission public hearing was mailed to adjacent property owners and residents on November 13, 2018
and published in the legal notices section of The Register Guard on November 26,2018. Notification of the
January 7, 2019 City Council public hearing was mailed to adjacent property owners and residents on
November 13, 2018 and published in the legal notices section of The Register Guard on December 31,
2018. Staff posted a notice of the December 4, 2018 and January 7, 2019 public hearings along the
Deadmond Ferry Road frontage of the subject property, in the lobby of City Hall, on the Development &
Public Works office digital display,and on the City's webpage.
Criteria of Approval
Section 5.14-135 of the SDC contains the criteria of approval for the decision maker to utilize during review
of Metra 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 Goats
Finding l: 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 I — 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 i 1 Public Facilities and Services; Goal 12 Transportation;
Goal 13 Energy Conservation; Goal 14 — Urbanization; and Goal 15 Willamette River Greenway.
ORDINANCE NO. 6395
Exhibit B,Page 3 of 26
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.
Goal 1 —Citizen Involvement
Applicant's Narrative: "The application is consistent with Goal 1. Goal one requires that citizens
and affected public agencies be provided opportunity to comment on the proposed plan
amendments, zone change and other land use decision. The purpose of Goal one is allow public
participation, input and transparency in the land use decision process. The City of Springfield has a
citizen involvement program ensuring the citizens are involved in the planning process. The
Springfield Development Code includes a requirement that notice of the proposed amendment is
posted in a paper of general circulation. Public Hearings are held by both the Planning
Commission and City Council prior to a land use decision being made. The process for adopting
amendments is in accordance with Statewide Planning Goal l."
Finding 2: Goal 1 —Citizen Involvement calls for"the opportunity for citizens to be involved in all
phases of the planning process." The proposed citizen-initiated amendment to the adopted Metro
Plan diagram is subject to the City's acknowledged plan amendment process — SDC Section 5.14-
100 Metro Plan Amendments and the City's public notice standards — SDC Section 5.2-115 which
requires a public hearing before the Springfield Planning Commission and a public hearing before
the Springfield City Council, and includes specifications for the content, timing and dispersal of
mailed notice (see description following). The Planning Commission conducted apublic hearing to
consider the proposed amendments on December 4, 2018. Mailed notification of the Planning
Commission and City Council public hearings was provided to all property owners and residents
within 300 feet of the subject property on November 13, 2018. The Planning Commission public
hearing was advertised in the legal notices section of the Register-Guard on November 26, 2018,
and the City Council public hearing was advertised in the Register-Guard on December 31, 2018.
The recommendations of the Planning Commission to the Springfield City Council were included
for consideration at the public hearing meeting scheduled for January 7, 2019. The notice for this
proposed Metro Plan diagram amendment complies with SDC 5.2-115 and is consistent with Goal I
requirements.
Goal 2—Land Use Planning
Applicant's Narrative., "The Metro Plan is the policy tool that provides a basis for decision-making
in the Eugene-Springfield area. The Metro Plan was acknowledged in 1982 as in compliance with
the statewide planning goals. The approval criteria for a Metro Plan amendment include the
requirement that an applicant demonstrate that the application is consistent with Metro Plan
policies with are themselves consistent with the statewide planning goals. These findings in the
record show that there is an adequate factual base for this decision. The application is consistent
with policies found in the Metro Plan and Springfield 2030 Comprehensive Plan. Those policies are
based on factual information. The application is subject to public hearing procedures and there are
facts in the record supporting the decision. The applicant's claims about the adequacy [oJ] low
density residential land supply within the UGB is factually accurate, based on the Springfield
Residential Lands survey and supported by evidence in the record. Goal 2 also requires
coordination with affected governmental units; those units have been provided the opportunityfor
review and comment. The City of Springfield coordinates that review of the amendment with
affected governmental units. The amendment is consistent with Statewide Planning Goal 2."
ORDINANCE NO. 6395
Exhibit B,Page 4 of 26
Finding 3: 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. Consistent with the City's coordination responsibilities and
obligations to provide affected local agencies with an opportunity to comment, the City sent a copy
of the application submittals to the following agencies: Willamalane Park & Recreation District;
Springfield Utility Board(water, ground water protection,electricity and energy conservation); Lane
911; USPS; Northwest Natural Gas; Emerald People's Utility District; Rainbow Water District;
Eugene Water and Electric Board—Water and Electric Departments; Springfield School District#19
Maintenance, Safe Routes to School and Financial Services; Lane County Transportation, County
Sanitarian; Lane Regional Air Pollution Authority; Comcast Cable; CenturyLink; Lane Transit
District; and ODOT Planning and Development, State Highway Division. Additionally, notice was
provided electronically to DLCD on October 2, 2018.
Finding 4: The 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 subject property is within the adopted Gateway Refinement Plan area and the
proposed amendment to the Metro Plan diagram would concurrently amend the adopted Refinement
Plan diagram. Additionally, the City is in the process of developing and adopting the Springfield
Comprehensive Plan, the final adopted version of which will replace the Metro Plan. The City's
initial action to this end was the adoption of Ordinance 96268 on June 20, 2011,which
"[E]stablishes a separate Urban Growth Boundary for the City of Springfield as required by
ORS 197.304 and a tax lot specific map of the CUB in accordance with OAR 660-024-
0020(2); and the Springfield 2030 Refinement Plan Residential Land Use and Housing
Element and Springfield Residential Land and Housing Needs Analysis February 2011
attached as Exhibit A and B and incorporated here by this reference are adopted pursuant to
ORS 197.304 as refinements to the Metro Plan."
This action refined and updated the Metro Plan's Residential Element, including findings,
objectives and policies.
Finding 5: The public hearing process used for amendment of the Metro Plan and adopted
Refinement Plans is specified in Chapter IV Metra 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.
Finding 6: The Springfield Development Code is a key mechanism used to implement the goals and
policies of the City's adopted comprehensive plans, particularly the Metro Plan. 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. The
process observed for 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
ORDINANCE NO.6395
Exhibit B,Page 5 of 26
with Goal 2 requirements, and that notice and coordination requirements "with those local
governments, state and federal agencies and special districts which have programs, land ownerships,
or responsibilities within the area" that includes this proposal have been provided consistent with
Goal 2.
Goal 3—Agricultural Land
Applicant's Narrative: "Goal 3 is not applicable to this amendment as the subject property and
proposed action is located entirely within an urban growth boundary. Goal 3 excludes lands inside
an acknowledged urban growth boundary, Goal 3 is not relevant to the amendment."
Finding 7: Goal 3 —As noted by the applicant in their narrative, 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 and within a developed neighborhood.
Consequently,and as expressed in the text of the Goal, Goal 3 is not applicable.
Goal 4—Forest Land
Applicant's Narrative: "Goal 4 is inapplicable to this application because the subject property[is]
entirely within an acknowledged urban growth boundary."
Finding 8: 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.
Goal 5—Natural Resources. Scenic and Historic Areas and Open Spaces
Applicant's Narrative: "The subject property does not include any Goal 5 resource sites and the
proposed amendment does not create or amend any list of acknowledged Goal 5 resources. The
proposal does not amend a plan or code provision adopted to protect a Goal 5 resource and does
not allow new uses conflicting with Goal 5. The proposal does not amend any UGB. The proposal
complies with statewide planning goal 5."
Finding 9: 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 not been identified in the City's Natural
Resources inventory, Register of Historic Sites, or the Willamalane Park & Recreation District
ORDINANCE NO. 6395
Exhibit B,Page 6 of 26
Comprehensive Plan. Additionally, 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 Metra Plan diagram and the Gateway Refinement
Plan diagram does not modify or alter the City's Development Code or other Metro Plan policies
relating to identified natural resources. 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: "Goal 6 protects air, water and land resource quality from development
impacts. There is nothing [in] this proposal that compromises land, air or water resources. The
subject parcel is entirely within an acknowledged UGB and the applicant is requesting a medium
density residential zoning designation. The property is fully served with urban infrastructure
including roads, electrical service, waste water and stormwater infrastructure. The full range of
required utilities is available within the Deadmond Ferry frontage. To the extent that it is relevant,
the proposal complies with Statewide Planning Goal 6."
Finding 10: 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
clean air, clean water, and preventing groundwater pollution. The proposed Metro Plan diagram
amendment and concurrent Gateway Refinement Plan 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 Subiect to Natural Hazards
Applicant's Narrative: "The subject property is not located in any known area of natural disasters
or hazards. The subject property not to [sic]any hazards associated with steep slopes or wildfires.
Portions of the site are within the 100 year floodplain. This hazard is mitigated through
development standards that alleviate the risk. Other hazards are mitigated through the application
of building codes. The amendment is consistent with Statewide Planning Goal 7."
Finding 11: 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 floodplains and potential landslide
areas on steeply sloping hillsides. The subject site is within a developed residential neighborhood
and also lies within the mapped flood hazard area of the McKenzie River. Future site development
will be subject to the provisions of the City's Floodplain Overlay District as described in SDC 3.3-
400.
Finding 12: 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 mapped flood hazard area of the McKenzie and Willamette Rivers.
Furthermore, as stated above, the site proposed for Metro Plan and associated Gateway Refinement
ORDINANCE NO. 6395
Exhibit B,Page 7 of 26
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: "Statewide planning Goal 8 ensures the provision of recreational facilities
to Oregon's citizens and is primarily concerned with providing recreational facilities in non-urban
areas of the state. There are no public or private recreational facilities on or adjacent to the subject
property. No recreational facilities are impacted by the proposed amendment. Therefore, the
proposed amendment does not affect access to existing or future public recreational facilities. The
proposal is consistent with statewide planning goal 8."
Finding 13: 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. Willamalane has an adopted 20-Year Comprehensive Plan for the provision of park, open
space and recreation services for Springfield. The proposed Metro Plan diagram amendment would
not affect Willamalane's adopted Comprehensive Plan or other ordinances, policies, plans, and
studies adopted to comply with Goal 8 requirements. Therefore, this action has no effect on the
City's acknowledged compliance with Goal 8.
Goal 9—Economic Development
Applicant's Narrative.' "The purpose of Statewide Planning Goal 9 is to provide adequate economic
opportunities throughout the state. This goal is primarily applicable to commercial and industrial
development. It requires jurisdictions [to] maintain an adequate supply of industrial and
commercial sites that are suitable in terms of size, type, and location jar all types of industrial and
commercial development through the twenty year planning horizon period. The proposal does not
implicate any employment lands nor directly affect economic development because the proposal
does not attempt to change the planning designations of the site from a commercial or industrial
designation to a non-employment designation. Rather, the amendment proposes to change the
planning designations of the subject propertyfrom low density to medium density residential. The
amendment does not impact employment land supply. The applicant's proposal is consistent with
Statewide Planning Goal 9."
Finding 14: 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 completed a multi-year process to expand the Urban
Growth Boundary (UGB) in the Gateway and South 28s' 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 from Low Density
Residential to Medium Density Residential will not affect the amount of employment land within
the City's inventory.
Goal 10 -Housine
ORDINANCE NO. 6395
Exhibit B,Page 8 of 26
Applicant's Narrative: "Goal 10 requires that communities plan for growth and maintain an
inventory of buildable residential land for needed housing units. The Administrative Rule for
Statewide Planning Goal 10 states.'
'The mix and density of needed housing is determined in the housing needs projection.
Sufficient buildable land shall be designated on the comprehensive plan map to satisfy housing
needs by type and density range as determined in the housing needs projection. The local
buildable lands inventory must document the amount of buildable land in each residential plan
designation. '
The Springfield Residential Lands and Housing Needs Analysis evaluates historic residential
development patterns and based on these patterns makes assumptions about future growth. The
SRLS also documents the amount of residential land in each category. The study projects the
amount of land required to satisfy needs based on type and density range. Based in a comparison of
the existing inventory with projected demand, the study determined that there is a surplus of
residential land in Springfield and that the existing supply is adequate for the planning horizon
period. Based on the findings in the Springfield Residential Lands Study, the application complies
with Statewide Planning Gaal 10. The Springfield Residential Land and Housing Needs Analysis
concluded that there is an adequate supply of low density residential land through the planning
horizon period. The study found that there was an approximately 378 acre surplus of low density
residential land. There are also adequate supplies of all other categories of residential land as
determined by the RLS though the surpluses are not as large as the surplus of low density
residential land Between 2010 and 2030, Springfield expects 27%population growth within city
limits (RLS, EcoNorthwest, pg. ii). Population growth has resulted in ongoing demographic shifts.
The population of Springfield is also growing younger and the percentage of households that are
housing cost burdened has increased. These facts are established in the Residential Lands survey
but are also well known to the community. The median home value in Springfield climbed 64%
percent [sic] between 1999 and 2006 and increases in housing costs have well outpaced wage
increases. The result of this trend is that more households are housing cost burdened Nome prices
have continued to rise. Despite the increase in housing costs, the existing low density residential
land base is sufficient to meet the demand for low density residential housing through the planning
period. The RLS indicates that there is a substantial surplus of low density residential land. _
According to the findings of the Residential Land and Housing Needs, 824 buildable acres of land
are zoned for low density residential use. This figure represents approximately 60% of the
residential lands inventory. The Residential Housing Needs Analysis concluded there was a 378
acre surplus of low density residential land There are ninety five acres designated as MDR
comprising approximately 30% of residential capacity according to the RLS. The remaining
inventory is designated for high density residential uses. There have been two minor amendments
affecting [sic] the overall supply of residential land since the adoption of the Residential Lands
study. The Gray property application (TYP417-00002 and TYP317-00004) changed the planning
and zoning designation of 1.78 acres of low density residential land to medium density residential
land and 1.57 acres from low density residential to high dewily residential in the area located north
of Fred Meyers/5a' Street. The Thurston Hills application (TYP417-00001 and TYP317-00003)
changed the zoning designation of 159 acres of low density residential land to the Parks and Open
space designation. The analysis set forth in the Thurston Hills application and the findings adopted
by City Council when approving that application indicated that much of the property taken out of
the LDR zoning designation by that application was constrained in the RLS acreage; and the
existing surplus of low density residential land is approximately 200 acres. The jurisdiction's
statutory obligation is simply to provide an adequate supply of buildable land in the applicable
ORDINANCE NO. 6395
Exhibit B,Page 9 of 26
district. Because there is a surplus of approximately 200 acres, supply is adequate as such, it is
perfectly responsible, reasonable and appropriate to consider and approve planning measures such
as this application. The application will result in the construction of additional dwelling units
within the existing UGB, addressing community needs for additional dwelling units within the UGB.
The development will serve the needs of the community and will not substantially reduce the supply
of development ready, low density residential land in Springfield. Several of the new policies
articulated in the housing element of the Springfield Comprehensive Plan are indicative of
Springfield's desire not only to meet statutory requirements to provide sufficient buildable
residential land in all density and income ranges, including affordable housing, but rather indicate
a deeper commitment to the community. As noted by the City of Springfield, this commitment goes
far beyond meeting the statutory requirement of simply providing an adequate supply of buildable
lands. Rather, the city actively seeks to provide a full range of housing choice, options, types, costs
and locations to meet the needs of the community. This application furthers those goals. The
subject property is currently designated for low density residential use and the applicant is
requesting designation of the property as medium density residential. As the applicant has
previously discussed there is a substantially larger surplus of low density residential land in
comparison to only a minor surplus of medium density residential land Therefore, the amendment
is consistent with statewide planning goal 70 because the end result shall satisfy local land use
needs based on projections. From a practical standpoint, the subject property is appropriate for
medium density residential development. It is completely surrounded by land planned for medium
density residential development and essentially exists as an island of low density development where
higher density residential development would be more suitable to the site."
Finding 15: 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 an
incremental impact to the City's residential land base; arguably, the impact would be limited to a
recalculation of surplus versus deficit levels for each of the Low and Medium Density Residential
categories. Based on the applicant's submittal, the amount of surplus Low Density Residential land
would be reduced by about one acre, and the amount of surplus Medium Density Residential land
would increase by about one acre. Staff observes that Findings 10 and I I of the Residential Land
Use and Housing Element identify a surplus of approximately 378 gross acres of LDR designation, a
surplus of approximately 76 gross acres of MDR designation, and a deficit of approximately 28
gross acres of HDR designation. The Residential Land Use and Housing Element (Residential
Finding 11, Page 11) goes on to state that the 28-acre deficit of HDR designation will be met
through redevelopment in Glenwood.
Finding 16: Staff advises that the Gray property Metro Plan amendment and
Zone Change cited by the applicant's narrative redesignated and rezoned 1.96 acres of LDR to MDR
and 1.39 acres of LDR to HDR. The adopted Metro Plan diagram amendment and Zone Change are
detailed in Ordinance 6378 adopted on April 16, 2018 and acknowledged by DLCD.
Finding 17: In addition to the two recent comprehensive plan amendments that reduced the surplus
of LDR land by approximately 162 acres (Cases TYP417-00001 — Willamalane and TYP417-00003
—Gray),another comprehensive plan amendment and zone change for property on High Banks Road
preceded the aforementioned amendments and reduced the surplus of LDR land by 7.1 acres (Case
TYP416-00003). Therefore, taking into consideration the subsequent Willamalane and Gray
amendments,the current surplus of LDR designated land is around 208.9 acres.
ORDINANCE NO.6395
Exhibit B,Page 10 of 26
Finding 18: The proposed redesignation and rezoning would change the anticipated type of housing
form on the property from single-family residential homes to duplex, four-plex, attached home,
townhouse, or apartment units, or a combination of these types. A congregate care facility or group
care home also could be constructed on the property under the proposed MDR zoning. Staff
observes that developing the site as acomprehensive piece rather than as six or more subdivided lots
(to meet minimum LDR density requirements) would be more feasible under an MDR zoning
scenario. This would allow for multiple units to be constructed on the property without requiring a
land division. The property is also surrounded on three sides by land that is already zoned and
designated MDR, and is within an area that is close to major employers, the rapid transit system,
multi-use pathway connections, and the regional transportation network. For these reasons staff
supports the proposal.
Finding 19: The Springfield 2030 Refinement Plan Residential Land Use and Housing Element
classifies the subject site as a combination of vacant and developed residential land. Therefore, part
of the subject site is classified for further residential development or redevelopment.
Finding 20: The proposed comprehensive plan amendment and zone change would not affect other
City ordinances, policies, plans, and studies adopted to comply with Goal 10 requirements.
Therefore,this action has no adverse effect on the city's acknowledged compliance with Goal 10.
Goal 11 —Public Facilities and Services
Applicant's Narrative.' "The purpose of Goal 11 is to provide for the planning, development and
provision of public facilities and services in a timely, orderly and efficient manner. The subject
property is located entirely within the City of Springfield as established in the annexation Case No.
811-18-000081-7YP4. There is a full range of urban services available to the subject property."
Finding 21: 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 adverse effect
on the demand for public facilities and services provided to the subject property and adjacent
properties. This area of Springfield is already planned for a full range of residential, campus
industrial, and institutional development and the public facilities serving this area have been
designed accordingly. Therefore, the City's continued acknowledged compliance with Goal 11 is
not affected by this proposal.
Goal 12—Transportation
Applicant's Narrative. "The purpose of Goal 12 is to provide and encourage a safe, convenient and
efficient transportation network. The subject property is adjacent to existing and adequate
transportation facilities for the proposed planning and zoning designation. However, [Goal] 12 is
implemented through the Transportation Planning Rule (TPR) as defined in Oregon Administrative
Rule OAR 660-012-000- et seq. The Eugene-Springfield Metropolitan Area Transportation
(Transplan) implements the TPR at the local level. When land use changes occur, including plan
amendment and zone changes that would significantly alter an existing or planned transportation
facility, the local government shall put in place measures assuring that the allowed land uses are
ORDINANCE NO. 6395
Exhibit B,Page 11 of 26
consistent with the identified function, capacity and performance standards of the facility. This plan
amendment and zone change application will increase the trip generation potential of the subject
property because the requested designation allows higher residential density than what is currently
allowed. More residences on the same site will result in more trip generation. Because the
application increases traffic potential the applicant has commissioned Oregon Licensed Traffic
Engineer Kelly Sandow to evaluate the applicant's request and determine whether that request shall
result in a significant impact with the meaning of the Transportation Planning Rule. The
Transportation Planning rule requires performance and capacity to be consistent with established
level of service standards for the type of Transportation Facility in the adopted transportation plan.
Where analysis indicates the proposal will not cause the facility to fall below the performance
standards for that facility, the application does not have a significant effect on a transportation
facility. The traffic scoping letter performed by Kelly Sandow and provided as part of this
application establishes compliance with this goal 12."
Finding 22: Staff reviewed the applicant's submitted traffic scoping letter prepared by Sandow
Engineering and requested clarification on the methodology and findings contained in the report. As
a result of staff feedback, the applicant's Traffic Engineer updated and resubmitted the traffic
scoping letter on October 17, 2018 (Attachment 4). Staff note that there appears to be an error in
Table 1 on page 2 of Attachment 4: the PM Peak hour trips generated under the MDR reasonable
worst-case scenario should be 19 trips rather than 13 as listed on the table. This represents an
increase of 4 peak hour trips, which is consistent with the applicant's TPR findings on pages 34
therein. Based on the findings and conclusions of the traffic analysis prepared by the applicant, the
proposed Metro Plan diagram amendment and Zone Change will not have a significant adverse
impact on the local transportation system. Staff concurs with the findings and conclusions of the
applicant's revised traffic scoping letter. The applicant identifies an increase in 4 peak hour trips
and 1 daily trip under the reasonable worst-case scenario for MDR designation and zoning. This de
minimis increase falls below the City's minimum threshold for analyzing traffic impacts at any
intersection under SDC 4.2-105.A.4.d, and therefore no further investigation or analysis is required.
Staff agree with the applicant's conclusion that this de minimis increase does not "degrade" or
otherwise "significantly affect" any existing or planned transportation facility under OAR 660-012-
0060(1)(c). Therefore, the proposal will not affect the City's acknowledged compliance with Goal
12.
Goal 13—Energy Conservation
Applicant's Narrative "This goal is not applicable to this plan amendment request. To the extent
that it is applicable, the proposed zoning district will make more efficient use of the subject property
than the present zoning district."
Finding 23: 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 one-acre property from LDR to MDR should not have an appreciable
impact to energy consumption, and in fact may offer opportunities for increased energy efficiency
through contemporary multi-family housing design. 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.
ORDINANCE NO. 6395
Exhibit B,Page 12 of 26
The site's solar access is not compromised by surrounding development. The City's conservation
measures applicable to stomt water management, temporary storage, filtration and discharge would
apply to multi-family residential 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: "[This]goal is not applicable to the request. [It is]geographically oriented
to specific areas."
Finding 24: 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 already
planned for residential land use on the subject property when completing its residential buildable
land inventory. Consistent with provisions of Goal 14, the City is responding to a request from a
property owner to redesignate and rezone the subject property from low density residential to a
higher density residential use. As noted in Finding 2.15 above, the proposed comprehensive plan
amendment and zone change will be noted on the City's residential land inventory; similar reporting
of inventory 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: "[This]goal is not applicable to the request. [It isJ geographically oriented
to specific areas."
Finding 25: 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; 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: "These goals are not applicable to the request. They are geographically
oriented to specific areas."
Finding 26: 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 that the proposed Metro Plan diagram land use designation
amendment from Low Density Residential to a combination of Medium and High Density
Residential is consistent with all applicable statewide land use planning goals and the criteria for
such action in SDC 5.14-135 (A): "The amendment shall be consistent with applicable Statewide
Planning Goals."
B. Plan Inconsistency
ORDINANCE NO.6395
Exhibit B,Page 13 of 26
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 adopted Metro plan remains the principal document supplying the
policy basis for land use decisions made in Springfield Oregon except [sic] that Ordinance 6268.
Adoption of Springfield Ordinance 96268 included the new Springfield 2030 Refinement Plan
Residential Land Use and Housing Element, the policies and implementation actions of which
replaced the goals, objectives and policies of the Metro Plan's Residential Land Use and Housing
Element. This relationship therefore requires the proposed amendment to be consistent with the
Springfield Comprehensive Plan, the prevailing Comprehensive Plan residential and land use
policies for the site. Inasmuch as Ordinance #6268 identifted the results of that adoption as
replacing the corresponding elements of the Metro Plan, the amendment process for adopted plans
and implementation ordinances has not changed. Therefore, the process and criteria for amending
refinement plans is found in SDC 5.6-115 and as preempted in SDC 5.14-120 and 5.14-135. The
Springfield Development Code requires that any proposed amendment not make the Metro Plan
internally inconsistent. The proposed diagram amendment does not make the Metro Plan internally
inconsistent. The development of this land with residential uses does not conflict with other land
use elements in the Metro Plan including commercial, industrial, park and open space, or
government and education. Adoption of the amendment to the Plan diagram will not result in an
internal inconsistency. Therefore, Criteria B.I will have been met. It does [not] affect any Metro
Plan policies or texts, the application is consistent with the policies related to housing supply and
demand."
Finding 27: 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,
which are adopted amendments to the Metro Plan. The subject property is within the adopted
Gateway Refinement Plan area, but as noted above, adoption of Springfield Ordinance #6268
included the new Springfield 2030 Refinement Plan Residential Land Use and Housing Element,the
policies and implementation actions of which refined and updated the goals, objectives and policies
of the Metro Plan's Residential Land Use and Housing Element. This relationship therefore
requires the proposed amendment to be consistent with the Metro Plan and the Springfield
Comprehensive Plan. The process and criteria for amending refinement plans is found in SDC 5.6-
115 and as preempted in SDC 5.14-120 and 5.14-135.
Finding 27.1: The proposal is consistent with the Residential Land Use and Housing Element of the
adopted Metro Plan including policies pertaining to residential land supply and demand. In
accordance with Policy AA, the City is to use annexation, provision of adequate public facilities,
rezoning, redevelopment, and infill to meet the 20-year projected housing demand. The proposed
resdesignation and rezoning of this property would create an opportunity for redevelopment of the
site with attached multi-unit housing to meet market demand.
Finding 27.2: The proposal is consistent with the residential density policies of the Metro Plan
Residential Land Use and Housing Element, including Policies A.10, A.11 and A.12 which
encourage higher density residential development in areas with existing infrastructure and facilities,
close to existing employment and commercial services, proximate to transportation systems and
public transit, and in conjunction with services and amenities. The subject site is on an existing
ORDINANCE NO. 5395
Exhibit B,Page 14 of 26
collector street and it abuts the PeaceHealth Riverbend campus, which is a major regional
employment and health services center. The site is also within walking distance of other employers,
major transportation corridors, bus rapid transit, shopping, services, and a variety of urban
amenities.
Finding 27.3: The proposal is consistent with Policy A.13 which looks to increase overall
residential density in the metropolitan area by creating opportunities for infill, redevelopment and
mixed-use while considering impacts on existing neighborhoods. The subject property represents a
potential infill /redevelopment opportunity within an existing neighborhood.
Finding 27.4: The proposal is consistent with the residential housing type and tenure policies of the
Metro Plan Residential Land Use and Housing Element, including Policies A.17 and A.18 which
provide for a full range of housing types, densities, sizes and locations and encourage a mix of
structure types and densities within residential designations. Currently, there is a single family
dwelling on the property and the proposed redesignation would allow for multiple attached housing
units to be developed on the property.
Finding 28: 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 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 MDR and to concurrently rezone the property to MDR. There are no
conflicts created by this proposed diagram amendment based on needed residential land inventories
or needed employment land inventories. The development of this land with residential uses does not
conflict with other land use elements in the Metro Plan including commercial, industrial, park and
open space, or government and education. Adoption of the amendment to the Plan diagram will not
result in an internal inconsistency. Therefore, Criteria B.I will have been met.
2. In cases where Springfield Comprehensive Plan applies,the amendment shall be consistent
with the Springfield Comprehensive Plan.
Applicant's Narrative: "In addition to developing its awn UGB and Residential Land Survey, the
City of Springfield has also adopted its own Housing element. In 2007, HB 3337 required cities in
Lane County with populations greater than 50,000[to]establish separate Urban growth boundaries
by needed housing statute ORS 197.304 and to evaluate the sufficiency of land within the existing
UGB by ORS 197.296. Springfield 'established'a separate UGB by amending the Metro Plan [to]
form a separate UGB for Springfield by Ordinance 6682 on June 20, 2011. In Ordinance 6682,
Springfield adopted the Springfield 2030 Comprehensive Plan which contains a Residential Land
and Housing Element settingforth policies related to housing specifically within Springfield's UGB.
The new housing policies are unique to the Springfield Comprehensive Plan; they did not exist in
the Metro Plan. Several of the new policies articulated in the housing element of the Springfield
Comprehensive Plan are indicative of Springfield's desire not only to meet statutory requirements to
provide sufficient buildable residential land in all density and income ranges, including affordable
housing, but rather indicate a deeper commitment to the community. As noted by the City of
Springfield, this commitment goes far beyond meeting the statutory requirement of simply providing
an adequate supply of buildable lands. Rather the city actively seeks to provide a full range of
housing choice, options, types, costs and locations to meet the needs of the community. This
application furthers those goals. The application is consistent with the following policies of the
ORDINANCE NO. 6395
Exhibit B,Page 15 of 26
Springfield Comprehensive Plan Housing Element Policies. The Residential Land and Housing
Policies and Implementation Actions of the Springfield 2030 Refinement Plan Residential Land Use
and Housing Element apply to the subject site and the application is consistent with the policies in
that element. Specifically, Policy 113 states the City shall 'support community-wide, district-wide
and neighborhood-specific livability and redevelopment objectives and regional land use planning
and transportation planning policies by locating higher density residential development and
increasing the density of development near employment or commercial services, within
transportation-efficient Mixed-Use Nodal Development centers and along corridors served by
frequent transit service'. This application is consistent with Policy 11.3. The application supports
community livability by providing a contiguous medium density residential area immediately
adjacent to low density housing. The proposal locates higher density residential development near
employment and commercial services consistent with this policy. Employment areas include
Riverbend and the associated medical clinics in the vicinity as well as Symantec and many others.
The site is also located in convenient proximity to commercial goods and services in accordance
with this policy. The application is also consistent with policy H6 which states the City shall
'continue to seek ways to reduce development impediments to more efficient utilization of the
residential land supply inside the UGB... '. Consistent with this policy, the applicant's proposal will
make more efficient use of land within the UGB by allowing more dwelling units per acre than are
presently allowable in the existing zoning district. The applicant's development plans are not
permitted by the existing zoning and this application will reduce development impediments and will
[result] in more efficient use of the residential land supply within the UGB by reducing the surplus
of low density residential land and providing a shovel ready site for the development of additional
higher density residences. The application is also consistent with Residential Land Use and
Housing Element Policy HIO, 'through the updating and development of each neighborhood
refinement plan, district plan or specific area plan, amend land use plans to increase development
opportunities for qualms [sic] affordable housing in locations served by existing and planned
frequent transit service that provides access to employment center, shopping, health care, civic,
recreational and cultural services'. This application updates the Gateway refinement plan
amending the plan to increase development opportunities and result in multi family development in
an area with access to employment centers, shopping and all other necessary services in compliance
with this policy. The application is also in accordance with Residential Land Use and Housing
Element Policy H11, the City shall 'continue to seek ways to update development standards to
introduce a variety of housing options for all income levels in both existing neighborhoods and new
residential areas that match the changing demographics and lifestyles of Springfield residents'. The
application addresses changing demographics and provides additional housing options. Approval
of this application results [in] additional multi family housing options that will serve the changing
demographics and lifestyle of Springfield residents. The final development pattern in the vicinity of
the subject property will include both low and medium density residential housing serving the needs
of the community and providing a variety of housing options to Springfield residents. In accordance
with Residential Land Use and Housing Element Policy H.12, the City shall 'continue to designate
land to provide a mix ofchoices (eg, location, accessibility, housing types, and urban and suburban
neighborhood character) through the refinement plan update process and through review of
developer-initiated master plans'. The developer has requested that the city designate the subject
parcel to allow the applicant to develop medium density housing at this location. This land will be
designated to provide a mixture of uses. Following approval of this application there will continue
to be a mix of choices in the vicinity through the developer initiated plan amendment process. In
accordance with Residential Land Use and Housing Element Policy H 13, the City shall 'promote
housing development and affordability in coordination with transit plans and in proximity to transit
stations'. The subject property is located in an area served by the public transit system in
ORDINANCE NO.6395
Exhibit B, Page 16 of 26
convenient proximity to the EmX Gateway and other public transit lines. The proposal is in
compliance with this policy. In accordance with Residential Land Use and Housing Element Policy
1114, the City shall 'continue to update existing neighborhood refinement plan policies and to
prepare new plans that emphasize the enhancement of residential neighborhood identity, improved
walkability and safety, and improved convenient access to neighborhood services, parks, schools,
and employment opportunities'. The applicant's proposal, a developer initiated Metro Plan
amendment and concurrent refinement plan amendment provides the City of Springfield the
opportunity to update existing refinement plans. The applicant's proposal will enhance
neighborhood identity. The proposal will unify the medium density and low density residential
areas and parcels in the vicinity of the subject property. The development will have convenient
access to employment opportunities such as Symantec as well as the services located in the Gateway
area in compliance with this criterion. For the reasons set forth in this narrative statement, the
applicant respectfully requests that city planning staff recommend approval of this application and
the ultimately this application be approved by the Springfield City Council."
Finding 29: As stated in the applicant's project narrative above, the Residential Land and Housing
Policies and Implementation Actions of the Springfield 1030 Refinement Plan Residential Land Use
and Housing Element apply to the subject site. In accordance with Policy H.3, the City shall
"support community-wide, district-wide and neighborhood-specific livability and redevelopment
objectives and regional land use planning and transportation planning policies by locating higher
density residential development and increasing the density of development new employment or
commercial services, within transportation-efficient Mixed-Use Nodal Development centers and
along corridors served by frequent transit service." The proposed Metro Plan diagram amendment
is consistent with this policy for the following reasons:there is existing Medium Density Residential
designated land on the eastern and southern boundaries of the property; the property abuts a large
institutional site (PeaceHealth Riverbend Campus)to the south;the property could serve as a buffer
and transitional zone between the undeveloped Medium Density Residential properties to the east
and south, and existing single family homes along Deadmond Ferry Road to the west; and the
property is proximate to the Lane Transit District EnoX Gateway-Riverbend line with transit stations
on Riverbend Drive to the south and International Way to the north.
Finding 30: In accordance with Springfield 2030 Residential Land Use and Housing Element Policy
H.6, the City shall "continue to seek ways to reduce development impediments to more efficient
utilization of the residential land supply inside the UGB..." The proposed Metro Plan diagram
amendment is consistent with this policy because the linear configuration of the property and its
oblique orientation to Deadmond Ferry Road is more conducive to development as a single unit
instead of multiple subdivided lots, which would be made possible under zoning that is consistent
with the Medium Density Residential plan designation.
Finding 31: In accordance with Springfield 2030 Residential Land Use and Housing Element Policy
H.10, "through the updating and development of each neighborhood refinement plan, district plan or
specific area plan, amend land use plans to increase development opportunities for quality
affordable housing in locations served by existing and planned frequent transit service that provides
access to employment center, shopping, health care, civic, recreational and cultural services." In
accordance with Springfield 2030 Residential Land Use and Housing Element Policy H.13, the City
shall "promote housing development and affordability in coordination with transit plans and in
proximity to transit stations." The proposed Metro Plan diagram amendment is consistent with
these policies because property is within a '/4 mile to the Lane Transit District EmX Gateway-
Riverbend line, which is identified in the Springfield 2035 Transportation System Plan as an
ORDINANCE NO. 6395
Exhibit B,Page 17 of 26
existing/planned Frequent Transit Network (see Figure 9 of the Springfield TSP). The property is
proximate to transit stations on Riverbend Drive to the south and International Way to the north.
Finding 32: In accordance with Springfield 2030 Residential Land Use and Housing Element Policy
H.14, the City shall "continue to update existing neighborhood refinement plan policies and to
prepare new plans that emphasize the enhancement of residential neighborhood identity, improved
walkability and safety, and improved convenient access to neighborhood services, parks, schools,
and employment opportunities." The proposed Metro Plan diagram amendment updates the
Gateway Refinement Plan map consistently with these policies. As described above in Findings 30
and 31 above, the subject property is proximate to a Frequent Transit Network and to large
employment centers. The property is sufficiently large to meet the solar setback requirements of
SDC 3.2-225 for the protection of the LDR property to the west. The linear configuration of the
property and its oblique orientation to Deadmond Ferry Road is more conducive to development as
a single unit instead of multiple subdivided lots.
Finding 33: While the Metra Plan and the Springfield 2030 Refinement Plan Residential Land Use
and Housing Element are the prevailing Comprehensive Plans for the site, the residential land use
policies of the Gateway Refinement Plan also pertain to the proposed development.
Finding 34: As amended by Ordinance 6109 adopted January 10, 2005, the Gateway Refinement
Plan Residential Element Policy and Implementation Action 2.0 requires the City to, "Ensure
availability of adequate supplies of land appropriate for low-, medium-, and high-density residential
development, while allowing for an appropriate mix of commercial, employment and residential
uses." As further explained in Findings 15 through 20, the proposed Metro Plan diagram
amendment complies with this policy because it shifts property from the large surplus of LDR-
designated property to MDR, which has a smaller surplus inventory within the Springfield UGB. As
further explained in Findings 29 through 32 above and in the applicant's narrative, the subject
property is appropriate for Medium Density Residential designation and zoning given its proximity
to other MDR-designated property, to the Frequent Transit Network, and to large employment
centers.
Finding 35: Gateway Refinement Plan Residential Element Policy and Implementation Action 1.0
states, "The City shall... actively participate in efforts to maintain and enhance residential
neighborhoods and attract compatible multi-family developments that would enhance the Gateway
Refinement Plan area." The proposed Metro Plan diagram amendment complies with this policy by
enabling multi-family development on the subject property that is compatible with the surrounding
neighborhood. As further explained in Findings 29 through 32 above and in the applicant's
narrative, the subject property is appropriate for MDR designation and zoning given its proximity to
other MDR-designated property, to the Frequent Transit Network, and to large employment centers.
The configuration of the subject property and its orientation to Deadmond Ferry Road is also more
compatible with multi-family development than a single-family neighborhood.
Finding 36: The subject property is identified in the Gateway Refinement Plan as part of Residential
Subarea 4, the "McKenzie-Gateway MDR Subarea." Under Ordinance 6109, Gateway Refinement
Plan Policy and Implementation Action 13.3 requires, "All development within the McKenzie-
Gateway MDR Site shall be consistent with an approved Master Plan." Policy and Implementation
Action 13.0 determines the scope of the Master Plan requirement for development in the McKenzie-
Gateway MDR Site, "A Master Plan shall be approved under a Type IV review process, for areas
larger than 5 acres within the city limits at the `McKenzie-Gateway MDR Site' on the Refinement
ORDINANCE NO. 6395
Exhibit B,Page 18 of 26
Plan Diagram, subsequent to annexation and prior to urban development of any portion of the Master
Plan area." The Master Plan requirement adopted in Ordinance 6109 was intended to facilitate the
development of the Peacellealth RiverBend Hospital and surrounding medical services and mixed-
use development. The subject property is not within the boundaries of the Riverbend Master Plan
adopted on June 19, 2006. Because the subject property is less than 5 acres in size and not within
the area previously subject to the Riverbend Master Plan, the Master Plan requirement stated in
Policy 13.3 is not applicable to the subject property.
Finding 37: Based on the foregoing, the proposal to redesignate and rezone the subject property
from LDR to MDR is consistent and compatible with the adopted policies of the Metro Plan, the
Springfield 2030 Refinement Plan Residential Land Use and Housing Element and the Gateway
Refinement Plan.
Conclusion
Based on the applicant's narrative, the findings herein, testimony submitted into the record, and the
criteria of SDC 5.14-135 for approving amendments to the Metro Plan,the proposed Metro Plan diagram
amendment, concurrent Gateway Refinement Plan amendment, and zone change from LDR to MDR is
consistent with these criteria.
ORDINANCE NO. 6395
Exhibit B,Page 19 of 26
Exhibit B
Staff Report and Findings
Springfield City Council
Zone Change Request
Hearing Date: January 7,2019
Case Number: 811-18-000181-TYP3
Applicant: Karl Mueller,Mueller Enterprises LLC
Property Owner: Moktar Alhemyare
Site: 273 Deadmond Ferry Road (Map 17-03-15-40,Tax Lot 1700)
Request
Rezone 273 Deadmond Ferry Road (Map 17-03-15-40, Tax Lot 1700) from Low Density Residential
(LDR)to Medium Density Residential (MDR).
Site Information/Background
The application was initiated and accepted as complete on September 28, 2018, and the Planning
Commission public hearing on the matter of the Zone Change request was held on December 4, 2018.
The Zone Change request is being processed concurrently with a Metro Plan Diagram amendment
submitted under separate cover, Case 811-18-000182-TYP4. The City Council will be reviewing both
applications at a public hearing meeting scheduled for January 7, 2019.
The property that is subject of the Zone Change request is a one-acre parcel containing an existing single
family home that is located at 273 Deadmond Ferry Road. The site has an oblique, "parallelogram"
configuration and is zoned and designated LDR in accordance with the Metro Plan and Gateway
Refinement Plan diagrams and the Springfield Zoning Map. The site abuts Deadmond Ferry Road along
the northern boundary, vacant MDR properties associated with the Riverbend Master Plan area to the
south and east, and an existing walkway along the western boundary. Along Deadmond Ferry Road to the
west of the subject property (and intervening walkway)the properties are zoned and designated LDR.
The applicant is proposing the zone change from LDR to MDR to facilitate future redevelopment of the
property with higher-density housing forms.
Notification and Written Comments
Notification of the December 4, 2018 Planning Commission public hearing and January 7, 2019 City
Council public hearing was sent to all property owners and residents within 300 feet of the site on
November 13, 2018. Notification of the Planning Commission public hearing was published in the
November 26, 2018 edition of the Register-Guard, and notification of the City Council public hearing was
published in the Register-Guard on December 31, 2018. Staff responded to one telephone call requesting
information about the proposal but no other telephone calls or written comments were received.
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:
ORDINANCE NO. 6395
Exhibit B,Page 20 of 26
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 andfunctional 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 Narrative: "The adopted Metro plan remains the principal document supplying the
policy basis for land use decisions made in Springfield Oregon except [sic] that Ordinance 6682.
Adoption of Springlield Ordinance #6268 included the new Springfield 2030 Refinement Plan
Residential Land Use and Housing Element, the policies and implementation actions of which
replaced the goals, objectives and policies of the Metro Plan's Residential Land Use and Housing
Element. This relationship therefore requires the proposed amendment to be consistent with the
Springfield Comprehensive Plan, the prevailing Comprehensive Plan residential and land use
policies for the site. Inasmuch as Ordinance #6268 identified the results of that adoption as
replacing the corresponding elements of the Metro Plan, the amendment process for adopted plans
and implementation ordinances has not changed Therefore, the process and criteria for amending
refinement plans is found in SDC 5.6-115 and as preempted in SDC 5.14-120 and 5.14-135. The
Springfield Development Code requires that any proposed zone change is consistent with the Metro
Plan. The proposed diagram amendment does not make the Metro Plan internally inconsistent. The
development of this land with residential uses does not conflict with other land use elements in the
Metro Plan including commercial, industrial, park and open space, or government and education.
Adoption of the amendment to the Plan diagram will not result in an internal inconsistency.
Therefore, Criteria A.1 is met. There are no conflicts created by this proposed diagram amendment
based on needed residential land inventories or needed employment land inventories. The
development of this land with residential uses does not conflict with other land use elements in the
Metro Plan including commercial, industrial, park and open space, or government and education.
Adoption of the amendment to the Plan diagram will not result in an internal inconsistency.
Therefore, [Criterion]B.1 will have been met."
ORDINANCE NO. 6395
Exhibit B,Page 21 of 26
Finding l: Metro Plan Chapter IV, Policy Ta 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 2: The property owner initiated a concurrent Metro Plan Diagram amendment in
accordance with provisions of SDC 5.14-100 (Case 811-18-000182-TYP4). Upon adoption of the
amending Ordinance, the Metro Plan Diagram would be amended and the requested zone change
from LDR to MDR 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 3: 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 UDR to MDR would facilitate the future review and approval of multi-family
housing on the site.
Finding 4: The subject site abuts properties that are zoned and designated MDR along the eastern
and southern boundaries. The site is proximate to property zoned and designated for Campus
Industrial uses across the street on the north side of Deadmond Ferry Road. As such, the proposed
Zone Change is consistent with nearby zoning and the zone change is compatible with existing uses
in the vicinity. The proposed zoning would create a transitional, higher-density residential area
between the undeveloped MDR properties to the south and east, and existing single-family homes
along Deadmond Ferry Road to the west.
2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development
Plans and functional plans;
Applicant's Narrative: `In addition to developing its own UGB and Residential Land Survey, the
City of Springfield has also adopted its own Housing element. In 2007, HB 3337 required cities in
Lane County with populations greater than 50,000[toj establish separate Urban growth boundaries
by needed housing statute ORS 197.304 and also to evaluate the sufficiency of land within the
existing UGB by ORS 197.296. Springfield 'established' a separate UGB by amending the Metro
Plan [toj farm a separate UGB for Springfield by Ordinance 6682 on June 20, 2011. In Ordinance
6682, Springfield adopted the Springfield 2030 Plan which contains a Residential Land Use and
Housing Element setting forth policies related to housing specifically within Springfield's UGB.
The new housing policies are unique to the Springfield Comprehensive Plan; they did not exist in
the Metro Plan. Several of the new policies articulated in the housing element of the Springfield
Comprehensive Plan are indicative of Springfield's desire not only to meet statutory requirements to
provide sufficient buildable residential land in all density and income ranges, including affordable
housing, but rather indicate a deeper commitment to the community. As noted by the City of
Springfield, this commitment goes far beyond meeting the statutory requirement of simply providing
an adequate supply of buildable lands. Rather the city actively seeks to provide a full range of
housing choice, options, types, costs and locations to meet the needs of the community. This
application furthers those goals. The application is consistent with the following policies of the
Springfield Comprehensive Plan Housing Element Policies: Specifically, Policy H3 states the City
shall 'support community-wide, district-wide and neighborhood-specific livability and
redevelopment objectives and regional land use planning and transportation planning policies by
locating higher density residential development and increasing the density of development near
employment or commercial services, within transportation-efficient Mixed-Use Nodal Development
ORDINANCE NO.6395
Exhibit B,Page 22 of 26
centers and along corridors served by frequent transit service'. This application is consistent with
Policy H3. The application supports community livability by providing a contiguous medium
density residential area immediately adjacent to low density housing. The proposal locates higher
density residential development near employment and commercial services consistent with this
policy. Employment areas in the [vicinity] include Riverbend and the associated medical clinics in
the vicinity as well as Symantec and many others. The site is also located in convenient proximity to
commercial goods and services in accordance with this policy. The application is also consistent
with [Policy] 116 which states the City shall 'continue to seek ways to reduce development
impediments to more efficient utilization of the residential land supply inside the UGB... '.
Consistent with this policy, the applicant's proposal will make more efficient use of land within the
UGB by allowing more dwelling units per acre than are presently allowable in the existing zoning
district. The applicant's development plans are not permitted by the existing zoning and this
application will reduce development impediments resulting in more efficient use of the residential
land supply within the UGB by reducing the surplus of low density residential land and providing a
shovel ready site for the development of additional higher density residences. The application is
also consistent with Residential Land Use and Housing Element Policy K 10, 'through the updating
and development of each neighborhood refinement plan, district plan or specific area plan, amend
land use plans to increase development opportunities for qualify [sic] affordable housing in
locations served by existing and planned frequent transit service that provides access to employment
center, shopping, health care, civic, recreational and cultural services'. This application updates
the zoning map, increasing development opportunities and result[ingj in multi family development
in an area with access to employment centers, shopping and all other necessary services in
compliance with this policy. The application is also in accordance with Residential Land Use and
Housing Element Policy H11, the City shall 'continue to seek ways to update development
standards to introduce a variety of housing options for all income levels in both existing
neighborhoods and new residential areas that match the changing demographics and lifestyles of
Springfield residents'. The application addresses changing demographics and provides additional
housing options. Approval of this application results [in] additional multi family housing options
that will serve the changing demographics and lifestyle of Springfield residents. The final
development pattern in the vicinity of the subject property will include both low and medium density
residential housing serving the needs of the community and providing a variety of housing options
to Springfield residents. In accordance with Residential Land Use and Housing Element Policy
H12, the City shall 'continue to designate land to provide a mix of choices (eg. location,
accessibility, housing types, and urban and suburban neighborhood character) through the
refinement plan update process and through review of developer-initiated master plans'. The
developer has requested that the city designate the subject parcel to allow the applicant to develop
medium density housing at this location. This land will be designated to provide a mixture of uses.
Following approval of this application there will continue to be a mix of choices in the vicinity
through the developer initiated plan amendment process. In accordance with Residential Land Use
and Housing Element Policy H.13, the City shall 'promote housing development and affordability in
coordination with transit plans and in proximity to transit stations'. The subject property is located
in an area served by the public transit system in convenient proximity to the EmX Gateway and
other public transit lines. The proposal complies with this policy. In accordance with Residential
Land Use and Housing Element Policy H14, the City shall 'continue to update existing
neighborhood refinement plan policies and to prepare new plans that emphasize the enhancement of
residential neighborhood identity, improved walkability and safety, and improved convenient access
to neighborhood services, parks, schools, and employment opportunities'. The applicant's
proposal, a developer initiated Metro Plan amendment and concurrent refinement plan amendment
and zone change provides the City of Springfield the opportunity to update existing refinement
plans. The applicant's proposal will enhance neighborhood identity. The proposal will ung the
ORDINANCE NO. 6395
Exhibit B,Page 23 of 26
Medium density residential and low density residential areas and parcels in the vicinity of the
subject property. The development will have convenient access to employment opportunities such as
Symantec as well as the services located in the Gateway area in compliance with this criterion. The
application complies with all relevant portions of the Metro Plan and the Springfield 2030
Comprehensive Plan. The proposed zoning designation is consistent with the applicable refinement
plan once the refinement plan diagram is amended apart of this application packet. This criterion
is met"
Finding 5: The property lies within the adopted Gateway Refinement Plan area of Springfield.
Therefore, the Residential land use policies of the Gateway Refinement Plan apply to the subject
site. In accordance with Residential Policy and Implementation Action 1.0, "the City shall,through
site plan review, home and neighborhood improvement programs, and/or other related programs,
actively participate in efforts to maintain and enhance existing residential neighborhoods and attract
compatible multi-family developments that would enhance the Gateway Refinement Plan area"
Finding 6: Staff observes that the subject property is sufficiently large to represent a viable multi-
family development site. Upon rezoning of the subject property, should this occur, the developer
would be required to undertake a Site Plan Review for any type of development on the property.
Under the current zoning, the developer would only require a Building Permit for reconstructing or
remodeling the existing single-family home. However, to meet the minimum density requirements
of the City's Development Code, a subdivision of the property would be required. The oblique
orientation to Deadmond Ferry Road and angular parcel configuration could make it difficult to
achieve the minimum required density of six units per acre under the current LDR zoning.
Therefore, developing the property as a single unit could be more efficient and allow for highest and
best use of this site.
Finding 7: 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. It appears that a small portion of the
property is identified as vacant and potentially developable or redevelopable on the inventory map.
Finding 8: 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. Recent Metro
Plan diagram amendments and Zone Changes for properties on Highbanks Road (Cases TYP416-
00003 and TYP316-00005); in the Thurston Hills (Cases TYP 417-00001 and TYP317-00003) and
on 5's Street(Cases TYP417-00002 and TYP317-00004) reduced this amount by approximately 169
acres leaving a surplus of approximately 208.9 acres. Upon redesignation and rezoning of the
subject site, should this occur, a surplus of about 207.9 acres of LDR designated land would remain.
The proposed rezoning would slightly increase the amount of surplus MDR zoned land identified in
the City's inventory. Therefore,the proposed rezoning will not have a significant adverse impact on
available LDR or MDR designated land within the City's 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: "The subject property is adequately served by a full range of urban services
including stormwater, wastewater and transportation infrastructure. The site plan demonstrates the
full complement of urban services is available to the subject property."
ORDINANCE NO. 6395
Exhibit B,Page 24 of 26
Finding 9: The property requested for Zone Change has frontage on Deadmond Ferry Road along
the northern boundary, which is classified as a major collector street. Along the property frontage,
Deadmond Ferry Road is a fully developed urban collector street with one vehicle travel lane and
bicycle lane in each direction and a bi-directional center tum lane. The paved street has lane
striping, street lighting, street trees, sidewalks and piped stormwater management facilities. A full
suite of public utilities and services are available on the perimeter of the subject property. Future
development of the site with Medium Density Residential uses would be subject to the land use
approval process outlined in Section 5.17-100 of the City's Development Code. In addition, the
applicant's submittal for Metro Plan diagram amendment is supplemented with findings addressing
the requirements of the Transportation Planning Rule and is included as Attachment 4 to the packet.
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.
Applicant's Narrative. "The application meets the criteria set out in 5.14-100. This
application is made in response to changing circumstances in the community and is
consistent with the purpose of the Metro Plan amendment process described by the
Springfield Development Code. There have been many changes in the Eugene/Springfield
area since the adoption of the Metro Plan. Papulation growth has resulted in ongoing
demographic shifts. Between 2010 and 2030, Springfield expects 27%population growth
within city limits (RLS, EcoNorthwest,pg. li). The population of Springfield is also growing
younger and the percentage of households that are housing cost burdened was 26% of
Springfield residents (RLS, EcoNorthwest, pg. 52). The median home value in Sprineleld
has climbed 64%percent [sic] in the period between 7999-2006 (RLS, EcoNorthwest, pg.
55) [and] increases in housing costs have well outpaced wage increases. The result of this
trend is that more households are housing cost burdened than previously. These challenging
circumstances mean that providing sound and affordable housing is an ongoing challenge;
however, as indicated in the Springfield Comprehensive Plan, the jurisdiction is committed
to meeting this challenge. One way to address this issue is through planning actions such as
this proposal; increasing the amount of housing and number[of] dwelling units that can be
accommodated within the existing UGB while maintaining sufficient inventories in all
respects. In 2007, HB 3337 required cities in Lane County with populations greater than
50,000 [to] establish separate Urban growth boundaries by needed housing statute ORS
197.304 and also to evaluate the sufficiency of land within the existing UGB by ORS
197.296. Springfield 'established'a separate UGB by amending the Metro Plan[to]form a
separate UGB for Springfield by Ordinance 6682 on June 20, 2011. In that ordinance,
Springfield adopted the Springfield 2030 Plan which contains a Residential Lands and
Housing Element setting forth policies related to housing specifically within Springfield's
UGB. The new housing policies are unique to the Springfield Comprehensive Plan; they did
not exist in the Metro Plan. Several of the new policies articulate Springfield's desire not
only to meet statutory requirements to provide sufficient buildable residential land in all
density and income ranges, including affordable housing, but rather indicate a deeper
commitment to the community. As noted by the City of Springfield, this commitment goes jar
beyond meeting the statutory requirement of simply providing an adequate supply of
buildable lands. Rather the city actively seeks to provide a full range of housing choice,
options, types, costs and locations to meet the needs of the community. This application
furthers those goals. The existing law density residential land base is sufficient to meet the
ORDINANCE NO.6395
Exhibit B,Page 25 of 26
demand for low density residential housing in Springfield through the planning period. In
fact, the studies indicate there is a substantial surplus of low density residential land
According to the findings of the Residential Lands Study, 814 buildable acres of land are
zoned for low density residential use. This figure represents approximately 60% of the
residential lands inventory. There are ninety five acres designated as MDR comprising
approximately 30%of residential capacity according to the RLS. The remaining inventory is
designated for high density residential uses. There have been two minor amendments
effecting [sic] the overall supply of residential land since the adoption of the Residential
Lands study. The Gray property application (TYP417-00001 and TYP317-00004) changed
the planning and zoning designation of 1.78 acres of low density residential land to medium
density residential land and 1.57 acres from low density residential to high density
residential in the area located north of Fred Meyers15th Street. The Thurston Hills
application ('TYP417-00001 and TYP317-00003) changed the zoning designation of 159
acres of low density residential land to the parks and open space designation. The analysis
set forth in the Thurston Hills application and the findings adopted by City Council when
approving that application demonstrate that most of the property taken out of the LDR
zoning designation was constrained acreage; the surplus of low density residential land
actually is approximately 300 buildable acres. The statutory obligation to provide an
adequate supply of buildable land in the applicable district has been met. Given this surplus
and the known challenge in providing affordable housing in Springfield because housing
costs have risen more quickly than income, it is responsible, reasonable and appropriate to
consider and approve planning measures such as this application. The application will
result in the construction of additional dwelling units within the existing UGB, addressing
changing circumstances in the community. The development will serve the needs of the
community and will not substantially reduce the supply of development ready, low density
residential land. This application is consistent with the purpose of the Metro Plan
amendment process set out in the Springfield Development Code."
Finding 10: The applicant has submitted a concurrent Metro Plan Diagram amendment
application (Case 811-18-000182-TYP4) 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.
Finding 11: 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 MDR under separate cover(Case 811-18-000182-TYP4). 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). Staff has reviewed the applicant's traffic scoping letter(Attachment 4)and concurs
with the summary and conclusion, which determines that the proposed plan amendment and
zone change from LDR to MDR will not significantly affect an existing or planned
transportation facility. (Staff note that there appears to be an error in Table 1 on page 2 of
Attachment 4: the PM Peak hour trips generated under the MDR reasonable worst-case
scenario should be 19 trips,which is consistent with the applicant's TPR findings therein.)
Conclusion: Based on the above-listed criteria,the criteria have been met.
ORDINANCE NO. 6395
Exhibit B,Page 26 of 26
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 CONDTTIONS
The Approval Authority may attach conditions as may be reasonably necessary in order to allow
the Zoning Map amendment to be granted.
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 consistent with the criteria of approval; however,
because the applicant has initiated concurrent Metro Plan and Gateway Refinement Plan diagram
amendments (Case 811-18-000182-TYP4),the comprehensive plan amendment will need to be completed
prior to or concurrent with approval of the Zone Change. Provisions for concurrent amendment of the
Metro Plan diagram, Gateway Refinement Plan diagram and Zoning Map have been incorporated into the
amending Ordinance.
The City Council 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 property.
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.
ORDINANCE NO. 6395