HomeMy WebLinkAbout2009 06 02 Residential Land Study MemorandumMEMORANDUM CITY OF SPRINGFIELD
DATE OF WORK SESSION: June 2, 2009
TO: Springfield Planning Commission PLANNING COMMISSION
TRANSMITTAL
FROM: Linda Pauly, Planning Supervisor MEMORANDUM
SUBJECT: Residential Land Needs Analysis: Identify options and opportunities
for accommodating Springfield’s needed housing density and mix
for the 2010-2030 plan period.
ISSUE:
The preliminary results of Springfield’s residential buildable land inventory and needs analysis
indicate that over the 20-year plan period Springfield has a deficiency of land in all residential
plan designations (low, medium and high density residential) to meet the need for 6,067
additional dwelling units. That deficit is particularly acute in the High Density Residential plan
designation (HDR). Springfield has an existing capacity of HDR 325 housing units and a need
for 910 units. This translates to approximately 99 acres of new HDR at 20 dwelling units per
acre. The inventory and analysis assumes buildout of the allowed existing residential capacity
as proposed and permitted in the Glenwood Riverfront Plan District, the RiverBend Master Plan
area and the Marcola Meadows Master Plan area. The City previously designated and zoned
these Nodal Development areas to provide land to meet the demand for multifamily housing
within mixed-use districts.
ACTION REQUESTED:
The Planning Commission is asked to conduct a work session to explore locations and
strategies for accommodating Springfield’s identified needed housing density and mix. Staff
requests the Planning Commission to focus the discussion as follows:
1. Review and discuss the attached land use and transportation planning policies.
2. Review and discuss a map prepared by staff that depicts existing MDR and HDR areas,
transit corridors, designated Nodal Development areas and potential Nodal
Development areas (TransPlan).
3. Identify potential opportunity areas for locating medium and high density residential uses
(MDR and HDR) either through plan redesignations, by increasing the allowed density
of existing MDR and HDR designated land in specific locations, or through other
redevelopment and infill strategies (ORS 197.296(9)).
4. Discuss the possibility of creating a new Springfield zoning district with an intermediate
density range between LDR and MDR levels.
ATTACHMENTS
Attachment 1: Preliminary Results of Residential Needs Analysis (ECONorthwest)
Attachment 2: Needed Dwelling Units by Plan Designation chart (ECONorthwest)
Attachment 3: Land Use and Transportation Planning Policies
Attachment 4: Summary of Residential Lands Study Process to date
BACKGROUND:
In 2006, the City initiated work on a housing needs analysis. The study is intended to comply
with statewide planning policies that govern housing, including Goal 10 (Housing), ORS
197.296, and OAR 660 Division 8. The primary goals of this study are to (1) project the amount
of land needed to accommodate the city’s future housing needs by type and density ranges; and
(2) evaluate the existing residential land supply within the Springfield Urban Growth Boundary to
determine if it is adequate to meet that need. In June 2007, the Oregon Legislature enacted
into law HB3337 requiring the City of Springfield to: 1) perform a housing needs determination
for the plan jurisdiction east of I-5; and, 2) adopt a UGB, separately from the City of Eugene,
with sufficient land to accommodate projected housing demand for the period 2010- 2030. The
City has been working on implementation of HB 3337 (ORS 197.304) since September, 2007.
To date this work has included a supply and demand analysis of residential land; a housing
needs determination; and proposed residential development efficiency measures that are
intended to increase residential densities throughout the City. Together this work constitutes
the City’s Residential Lands Study (RLS).
The Residential Land Inventory has been updated and the demand for residential land through
2030 has been projected. ORS 197.296 requires the City to “determine the overall average
density and overall mix of housing types at which residential development of needed housing
types must occur in order to meet housing needs.” The City’s needed housing mix and density
are different than the current mix and density. Therefore the City is required to adopt measures
that increase the likelihood that the needed density and mix of housing types will be developed
over the next 20 years.
DISCUSSION: Statewide Planning Goal 10 requires cities to provide a 20-year supply of
residential land. OAR 660-008-0010 articulates the buildable land requirement:
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.
Springfield is in the process of preparing amendments to the comprehensive plan that will
establish a separate urban growth boundary and plan diagram for Springfield. The new
Springfield plan diagram must designate sufficient residential land to meet the need identified in
the Housing Needs Analysis. Plan policies must establish housing density ranges, types and
mix consistent with the requirements of Goal 10.
Questions & notes for the Planning Commission’s discussion:
1. Should higher density residential uses be located in or near the existing urban centers?
In the Glenwood and Downtown Urban Renewal Districts? As an adjunct to future
employment centers located at the urban fringe? In other Nodal Development areas
(Mohawk, Marcola Meadows, RiverBend)? Should some of the need be accommodated
through increasing the development capacity of existing high density and medium
density designated land, particularly land that is located along transit corridors?
2. On April 13, 2009, the City Council directed staff to work with the Planning Commission
to continue development of Land Use Efficiency Measures that could be implemented
through the adoption of Springfield’s comprehensive plan policies and plan designations.
Implementation of some measures will allow for allocation of additional residential
density within Springfield’s existing urban growth boundary to accommodate the needed
housing density and mix. The Planning Commission, Residential Lands Study
Stakeholder Committee and City Council have recommended and placed high priority on
the following efficiency measures: 1) consideration of additional areas for nodal
development; 2) consideration of additional areas to allow mixed-use in conjunction with
the CIBL study; and 3) consideration of increasing densities allowed along corridors.
3. At a previous work session on the proposed Land Use Efficiency Measures, the
Planning Commission asked for further discussion of the following measures:
• Consider increasing (or eliminating) density maximums in high density zones.
• Increase opportunities for development of duplexes, etc. Consider expanding
where duplexes, tri-plexes, or quad-plexes are allowed, including allowing more
of these housing types in LDR if appropriate. This includes considering
elimination of the restriction that allows duplexes on corner lots only in LDR to
allow more duplexes in subdivisions.
4. The Metro Plan and Springfield’s zoning code currently have one low-density residential
designation and zone. The LDR plan designation and zone permits a maximum density
of 10 dwellings per gross acre, and allows a variety of lower density housing types.
Many cities have more than one Low Density Residential (LDR) zoning district with
varied development standards to address the unique development patterns, housing
needs and preferences of different eras of neighborhood development, rather than a
“one size fits all” LDR standard. These districts typically are distinguished by minimum
lot sizes ranging from 8,000 square feet or more to 4,000 square feet or less.
At their April 13, 2009 work session, the City Council directed staff to work with the
Planning Commission to explore whether this approach would address Springfield’s
needs and concerns. We would like to discuss the possibility of establishing a low-
medium density plan designation and zoning district (8 to 15 units per net acre) that
could allow a mixing of small lot, detached single family homes and slightly higher
density row houses and duplexes that could be permitted outright (e.g. without Type III
Discretionary Use Approval or Type II site plan review) to encourage development of a
wider range of housing choice and price ranges at density levels high enough to create
new transit-ready neighborhoods. Staff sees especially good potential for applying the
new flexible district standards to land brought into the UGB to meet the identified
demand for low density and affordable housing types. Such a strategy would address
several land use efficiency measures including increasing minimum lot sizes, allowing
smaller lots, and allowing duplexes and other higher density housing types.
Phone • (541) 687-0051 Suite 400 Other Offices FAX • (541) 344-0562 99 W. 10th Avenue Portland • (503) 222-6060
info@eugene.econw.com Eugene, Oregon 97401-3001 Seattle • (206) 622-2403
27 April 2009
TO: Springfield Planning Commission
CC: Linda Pauly and Mark Metzger
FROM: Bob Parker and Greg Winterowd
SUBJECT: PRELIMINARY RESULTS OF RESIDENTIAL LAND NEEDS
ANALYSIS, IMPLICATIONS FOR LAND NEED, AND LAND USE
EFFICIENCY MEASURES
BACKGROUND
In 2006, ECONorthwest initiated work on a housing needs analysis for the City of Springfield.
The study is intended to comply with statewide planning policies that govern housing, including
Goal 10 (Housing), ORS 197.296, and OAR 660 Division 8. The primary goals of this study are
to (1) project the amount of land needed to accommodate the city’s future housing needs of all
types, and (2) evaluate the existing residential land supply within the Springfield Urban Growth
Boundary to determine if it is adequate to meet that need.
The study was put on hold after the passage of HB 3337 because the City did not have an
adopted coordinated population forecast. In 2008, the City decided to pursue a safe harbor
population figure consistent with OAR 660-024-0030(4). The safe harbor population figure
allows the city to finish the residential land study and combine the results with the ongoing
employment land study. ECO presented preliminary results of the Residential Lands Study at a
City Council Work Session on April 13th and at the Planning Commission/CIBL Stakeholder
Committee Work Session on April 16th.
The preliminary analysis concludes that Springfield has a deficit of 400 gross acres of residential
land in its UGB to accommodate growth forecast during the 2010 to 2030 period. The
preliminary analysis, however, did not consider redevelopment, the Glenwood mixed-use area,
or any additional land use efficiency measures. In short, the preliminary numbers will change
based on a new population forecast, refined assumptions about housing density and mix,
allocation of other land need, and land use efficiency measures. The June 2nd worksession is the
Planning Commission’s first opportunity to address land use efficiency measures.
The remainder of this memorandum outlines some refined land use efficiency measures for
consideration and discussion by the Planning Commission at the June 2nd worksession.
Springfield Housing Needs Analysis: Policy Options 27 May 2009 Page 2
PRELIMINARY CONCLUSIONS
The preliminary analysis suggests Springfield has a deficiency of residential land in its UGB.
Based on buildable lands inventory, and assumptions about needed housing mix and density, the
city has a deficit of 400 gross residential acres.
Table 1 shows the capacity for residential development by plan designation. It also shows an
estimate of lands needed for other uses (e.g., parks, schools, churches, etc.). ECO estimates
Springfield will need 463 acres for other uses during the 2010-2030 period.
The results lead to the following findings:
• Springfield has a need for additional residential land. Not considering redevelopment
potential, the Springfield UGB has enough land for 6,662 new dwelling units. The
housing needs forecast projects a need for 6,067 dwelling units, while this represents a
surplus capacity for housing, the City also has a need for 463 acres of public and semi-
public land.
• The Low Density Residential designation has a deficit of approximately 298 gross acres.
• The Medium Density Residential designation has a deficit of approximately 3 gross
acres.
• The High Density Residential designation has a deficit of approximately 99 gross acres.
• The total residential land deficit is 400 gross acres.
Note that the preliminary results do not reflect residential redevelopment potential. ECO is in the
process of evaluating historical rates of residential redevelopment and identifying lands that may
redevelop during the planning period. They also do not reflect the new population forecast that is
working through the local review and adoption process. These changes, combined with other
assumptions, will result in changes to the total land need and the size of any potential UGB
expansion.
Table 1. Residential capacity for needed dwelling units by plan designation,
Springfield UGB, 2010-2030
Plan Designation
Need
(DU)
Capacity
(DU)
Surplus/
Deficit
(DU)
Needed
Density
(DU/GRA)
Housing
Land
Need
(Gross
Acres)
Housing
Surplus/
Deficit
(Gross
Ac)
Other
Residential
Land Need
Total
Surplus/
Deficit
(Gross
Ac)
Low Density Residential 3,762 3,714 -48 4.3 11 -11 287 -298
Medium Density Residential 1,395 2,623 1,228 11.9 0 104 106 -3
High Density Residential 910 325 -585 20.0 29 -29 69 -99
Total 6,067 6,662 595 40 63 463 -400
Source: ECONorthwest
Springfield Housing Needs Analysis: Policy Options 27 May 2009 Page 3
STATE POLICY REQUIREMENTS
State policy dictates that city’s must consider “land use efficiency” measures prior to expanding
the UGB to meet an identified land deficiency.
The housing needs analysis concluded that Springfield has a different needed housing density
and mix than it experienced during the 1999-2008 period. ORS 197.296 requires cities to
consider land use efficiency measures if the housing needs analysis finds that the City may not
meet identified housing needs. The measures are intended to increase the probability that the
needed housing types will get built (e.g., that the City will achieve the needed density and mix).
Specifically, the statute states:
(6) If the housing need determined … is greater than the housing capacity … the local
government shall take one or more of the following actions to accommodate the
additional housing need.
a. Amend its urban growth boundary to include sufficient buildable lands to
accommodate housing needs for the next 20 years.
b. Amend its comprehensive plan, regional plan, functional plan or land use
regulations to include new measures that demonstrably increase the likelihood
that residential development will occur at densities sufficient to accommodate
housing needs for the next 20 years without expansion of the urban growth
boundary.
c. Adopt a combination of the actions described in paragraphs (a) and (b) of this
subsection.
Because the needed housing mix and density are different than the actual mix and density, the
City is required to adopt measures that demonstrably increase the likelihood that residential
development will occur at the housing types and density and at the mix of housing types required
to meet housing needs over the next 20 years. ORS 197.296(9) provides a list of potential land
use efficiency measures:
(9) In establishing that actions and measures adopted under subsections (6) or (7) of this
section demonstrably increase the likelihood of higher density residential development,
the local government shall at a minimum ensure that land zoned for needed housing is in
locations appropriate for the housing types identified under subsection (3) of this section
and is zoned at density ranges that are likely to be achieved by the housing market using
the analysis in subsection (3) of this section. Actions or measures, or both, may include
but are not limited to:
(a) Increases in the permitted density on existing residential land;
(b) Financial incentives for higher density housing;
(c) Provisions permitting additional density beyond that generally allowed in the
zoning district in exchange for amenities and features provided by the developer;
(d) Removal or easing of approval standards or procedures;
(e) Minimum density ranges;
Springfield Housing Needs Analysis: Policy Options 27 May 2009 Page 4
(f) Redevelopment and infill strategies;
(g) Authorization of housing types not previously allowed by the plan or regulations;
(h) Adoption of an average residential density standard; and
(i) Rezoning or redesignation of nonresidential land.
Additional state policy guidance related to land use efficiency measures is provided in OAR 660-
024-0050 (4):
“If the inventory demonstrates that the development capacity of land inside the UGB is
inadequate to accommodate the estimated 20-year needs determined under OAR 660-
024-0040, the local government must amend the plan to satisfy the need deficiency,
either by increasing the development capacity of land already inside the city or by
expanding the UGB, or both, and in accordance with ORS 197.296 where applicable.
Prior to expanding the UGB, a local government must demonstrate that the estimated
needs cannot reasonably be accommodated on land already inside the UGB. If the local
government determines there is a need to expand the UGB, changes to the UGB must be
determined by evaluating alternative boundary locations consistent with Goal 14 and
OAR 660-024-0060.”
The next section describes potential land use efficiency measures identified as priority measures
by the Planning Commission.
POTENTIAL LAND USE EFFICIENCY MEASURES
The Springfield Planning Commission has already reviewed a range of potential efficiency
measures and provided direction to staff about which measures to fully analyze. Staff produced a
detailed description of potential land use efficiency measures in January 2008 to facilitate an
initial discussion with the Planning Commission. The Planning Commission prioritized the
measures as follows:
High priority
y Reduce street width
y Allow small lots
y Allow duplexes/other
housing in LDR
y Max lot size
y Min density in LDR
y Cluster development
y Increase allowable
densities
Medium priority
y Nodal Development
y Mixed‐use
y Transit‐oriented
development
y Allow co‐housing
Low priority
y Density bonus
y Transfer of development
rights
y Expedited project review
y Accessory dwelling units
y Multifamily tax credit
Springfield Housing Needs Analysis: Policy Options 27 May 2009 Page 5
Note that many of these measures are already in use in Springfield (those in use are in italics).
Some measures already in use could be enhanced to provide additional efficiencies. Prior to
discussing these measures—which are relatively specific—we would like to discuss some
broader measures that address some of the identified needs and may encompass one or more of
the measures listed above.
LAND DESIGNATIONS
Goal 10 requires cities to provide a 20-year supply of residential. OAR 660-008-0010 articulates
the buildable land requirement:
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 housing needs analysis identified a deficiency of land in all residential plan
designations. That deficit is particularly acute in the High Density Residential designation.
At the June 2nd meeting staff will facilitate a discussion about how Springfield might meet
these needs:
• Opportunity areas for higher density housing. Much of the MDR and HDR land is in
locations that are not conducive to high density housing. This discussion will explore
appropriate locations and strategies to meet those identified needs. This could include
some of strategies listed in ORS 197.296(9) including increases in permitted density
(item a), redevelopment and infill strategies (item f), and redesignation or rezoning land
(item i)
• Opportunity areas for lower density housing. The preliminary analysis identified a
deficiency of LDR land. This discussion will explore options for locating lower density
housing—including potential UGB expansion areas.
LOW DENSITY RESIDENTIAL ZONES
Springfield’s zoning code currently has one low-density residential zone. The LDR zone permits
a maximum density of 10 dwellings per gross acre, and allows a variety of lower density housing
types.
Many cities have multiple low density zoning districts that provide more specific standards.
These are usually ordered by minimum lot sizes which may range for 8,000 square feet or more
to 4,000 square feet.
Staff would like to discuss the possibility of establishing multiple low-density residential
zones with the Planning Commission at the June 2nd meeting. Such a strategy would address
several measures including increasing minimum lot sizes, allowing smaller lots, and allowing
duplexes and other higher density housing types.
Tasks Target
Dates
Task
Completed
Phase 1: Residential Buildable Lands Inventory (Work conducted internally by City
Staff)
Stakeholder Committee meetings #1-2 to review the
definitions/assumptions for “vacant, underutilized,
and redevelopable,” and to define constraints that
would make land “unbuildable.”
May 11th, 2006 YES
Review definitions and assumptions with Planning
Commission June 6th, 2006 YES
Review definitions and assumptions with City
Council June 12th, 2006 YES
Conduct initial inventory work:
Identify vacant, underutilized, and
redevelopable land
Identify environmentally constrained lands
Identify land with public facility constraints
May 2006 –
December 2006
YES
ECONorthwest Hired in October 2006 to begin Phase 2 (see below) Housing Needs
Analysis
Phase 2: Housing Needs Analysis (Work conducted externally by ECONorthwest as per
signed contract)
Coordinate with City Staff to determine the actual
density/mix of housing
October 2006 –
December 2006 YES
Stakeholder Committee meeting #3 to review the
population definitions/assumptions for population
projections and anticipated housing trends
January 18th,
2007 YES
Conduct a Housing Needs Analysis January 2007 –
June 2009 NO
Stakeholder Committee meeting #4 to review the
initial housing inventory & needs findings. March 8th, 2007 YES
Compare the needed housing density and mix with
the actual density and mix.
January 2007 –
March 2007 YES
Determine if the UGB contains enough buildable
land at actual densities
January 2007 –
May 2009 YES
Identify and evaluate measures to increase the
likelihood that needed residential development will
occur. Present Stakeholder recommendation to
Planning Commission and City Council
March 18th, 2008
(PC)
April 13, 2009
(CC)
YES
Determine the effect, if any, of implementation of
one or more measures for needed housing on the
question of whether to expand the UGB.
April-June 2009 NO
Adopt Springfield Population Projection May 18, 2009 YES
Residential Lands Study
Summary of Tasks and Completion Dates
Revised as of June 2008
Public open houses to present the inventory
methodology and findings
April 2, 2009
May 14 & 20,
2009
IN
PROGRESS
Phase 3: Draft of Residential Lands Report
Stakeholders Committee Meeting #5 to review the
Draft Residential Lands Inventory Report. April 16th, 2007 YES
PROJECT PUT ON HOLD BECAUSE OF HB3337 and issues related to
coordination of population forecast
Present Draft Residential Lands Report to City
Council for review (Technical Memorandum was presented
in place of full draft report. This was because of modifications
made in the draft report between April 07 and October 07 due
to project delay from HB 3337; and new spatially adjusted GIS
data which impacted the inventory numbers.)
October 22nd,
2007 YES
Present Draft Residential Lands Report to Planning
Commission for review (Technical Memorandum was
presented in place of full draft report. This was because of
modifications made in the draft report between April 07 and
October 07 due to project delay from HB 3337; and new
spatially adjusted GIS data which impacted the inventory
numbers.)
November 16th,
2007 YES
Phase 4: Verification of Inventory & Housing Needs Analysis (staff & ECO
Northwest)
Inventory recalculation due to project hold
Two new inventory recalculations were
completed during this time as new inventory
maps were produced to verify accuracy of
spreadsheet information.
One additional inventory recalculation has
been completed to include steep slopes &
floodplain (per direction from DLCD)
Inventory was updated to July 2008
August 2007
August 2008 YES
Produce revised inventory map
March 2009
YES
Review revised Inventory Map and adjust inventory
calculations as needed April 2009 YES
Recalculate Needs Analysis based off of updated
inventory & adopted Springfield population
projection figure.
May-June 2009
IN
PROGRESS
Phase 5: Revised Residential Lands Study Report (Incorporate with CIBL / Goal
14 Analysis Report)
Present RLS findings to Planning Commission for
review
April 16 & June
2, 2009
IN
PROGRESS
Present RLS findings to City Council for review April 13, 2009 YES
Incorporate RLS Report into CIBL/Goal 14 Analysis
Report
April – June
2009
IN
PROGRESS
Planning Commission work session on proposed
code amendments to implement Efficiency Measures June 16, 2009 NO
Planning Commission public hearing on proposed
code amendments to implement Efficiency Measures July 21, 2009 NO
Phase 6: Adoption
Present RLS / CIBL/ Goal 14 Report to Planning
Commission & City Council for review June 22, 2009 NO
Send RLS / CIBL/ Goal 14 Report to DLCD for
review (45-Day Notice of Proposed Adoption) July 31, 2009 NO
Joint Planning Commission Public Hearing for
review/adoption – first reading
September 15,
2009 NO
Joint Elected Official Adoption proceedings begin December 7,
2009 NO