HomeMy WebLinkAbout2009 12 15 RS Commercial Industrial Buildable LandsMEMORANDUM CITY OF SPRINGFIELD
DATE OF HEARING: December 15, 2009
TO: Springfield Planning Commission PLANNING COMMISSION
TRANSMITTAL
FROM: Linda Pauly MEMORANDUM
SUBJECT: Springfield Commercial and Industrial Buildable Lands Study
LRP2007-00031
ACTION REQUESTED: The Planning Commission shall conduct a public hearing to accept
testimony on the draft work products of the Commercial Industrial Buildable Lands Study (CIBL).
The Planning Commission is asked to forward a recommendation to the City Council to adopt
the CIBL inventory, analysis and related plan provisions to provide Springfield with a baseline
inventory and analysis of employment land needs for the plan period 2010-2030.
ISSUE: The City of Springfield proposes to adopt the draft Springfield Commercial and
Industrial Buildable Lands Inventory, Economic Opportunities Analysis and the Economic
Development Objectives and Implementation Strategies as part of Springfield 2030 Refinement
Plan pursuant to LCDC's Economic Development goal and rule in order to carry out mandate of
2007 Or Laws Chapter 650 requiring Springfield to separately establish its own urban growth
boundary pursuant to statewide land use goals. Applicable criteria include 2007 Or Laws
Chapter 650, State Economic Development Planning Goals and Rules OAR 660-0015, OAR
660-009-0020, OAR 660-009-0025 as amended by LCDC in 2007, and applicable
comprehensive plan policies.
DISCUSSION: The work products of the CIBL study were prepared by the City’s consultant
ECONorthwest and staff in collaboration with the CIBL Stakeholder Advisory Committee and the
CIBL Technical Advisory Committee. Five two-hour joint work sessions with the Planning
Commission and City Council were held to review and refine the work in progress. The study
was informed by the results of an online Community Development Survey, two community
visioning workshops, and interviews with stakeholders and staff representing affected agencies
such as Oregon Department of Transportation and Department of Land Conservation and
Development. The survey results and draft work products of the study were available for
viewing at public open houses. Drafts of all interim work products and documentation of the
CIBL Stakeholder Committee process have been posted on the Planning Division webpage
throughout this project.
The CIBL project has three components: (1) a buildable lands inventory; (2) an economic
opportunities analysis; and (3) an economic development strategy. All of these elements are
required to comply with statewide planning Goal 9 and the Goal 9 rule (OAR 660-009). The
Economic Development Objectives and Implementation Strategies updates and builds from
previous economic development planning work by the City and will be used to guide
development of land use policies to implement the City’s economic development vision.
Previous land studies were conducted jointly with Springfield’s Metro Plan partners. Adoption of
Springfield-specific economic development policies and implementation actions – through
adoption of the Springfield 2030 Refinement Plan – will allow the City to clearly articulate its
desired economic future and its preferred land use strategies to attain that vision.
The Springfield Commercial and Industrial Buildable Lands Inventory, Economic Opportunities
Analysis provides 1) an employment forecast for Springfield; 2) identification of target industries;
3) a comparison of land capacity and demand; and 4) characteristics of needed sites to
determine the sufficiency of sites available for economic land uses. OAR 660-009 requires
cities to maintain an inventory of land to provide for at least a 20-year supply of commercial and
industrial sites consistent with local community development objectives. The analysis seeks to
answer the questions:
Which industries are most likely to be attracted to the Eugene-Springfield area?
Which industries best meet Springfield’s economic objectives?
Which types of sites will be required by these industries?
Does the City’s inventory provide land for needed sites?
Demand for commercial and industrial land will be driven by the expansion and relocation of
existing businesses and new businesses locating in Springfield. Employment is forecast to
grow by 13,440 employees (a 32% increase) by 2030. The CIBL study provides technical
analysis to determine the types of sites and the amount of land that would be required to
provide for this future employment growth, based on the inventory of land available under
existing Metro Plan designations and policies. OAR 660-009-0015(2) requires the City to identify
the number and types of sites reasonably expected to be needed over the planning period.
Types of needed sites are based on the site characteristics typical of expected uses.
The key conclusions in the analysis of land availability and capacity for employment uses in
Springfield are:
The majority of employment growth in Springfield will not require vacant land.
Springfield will be able to meet employment land needs on sites five acres and smaller
within the existing UGB, through redevelopment, infill development, and employment
uses on non-employment land (e.g., home occupations). The City assumes that 52% of
new employment would not require vacant land. One of the City’s economic
development strategies is to encourage redevelopment, especially in Downtown and
Glenwood. Springfield concludes that 187 industrial sites and 340 commercial and
mixed-use sites would redevelop to address land needs over the 20-year period. In
addition to this assumption about redevelopment, Springfield assumes that all land
needs on sites smaller than five acres would be accommodated through redevelopment.
This portion of employment addresses the OAR 660-024-0050 requirements that the
City consider “land use efficiency measures” prior to expanding the UGB. Policies in the
Springfield 2030 Refinement Plan will articulate the City’s strategies to achieve this level
of infill and redevelopment.
Springfield will need employment land with characteristics that cannot be found
within the existing UGB. The employment land needs that may not be met within the
UGB are for sites five acres and larger. The Economic Opportunities Analysis identifies
six needed industrial sites on 450 acres and eleven needed commercial and mixed-use
sites on about 190 acres to meet the city’s economic development objectives over the
plan period - a total of 17 sites with approximately 640 acres of industrial and other
employment land on sites five acres and larger that cannot be accommodated within the
existing UGB. Springfield’s inventory lacks employment sites of sufficient size, location
and configuration to provide an adequate competitive supply of suitable land to respond
to economic development opportunities as they arise. Sites suitable for commercial and
industrial land uses (flat sites, frontage on arterials, access to rail and freeways,
separation from residential uses, etc.) are already developed and/or designated for
these uses. The City currently has only one buildable site 20 acres or larger. Availability
of sites 20 acres and larger is important for attracting or growing large businesses, which
are often traded-sector businesses. If the City does not have these large sites, there is
little chance that the City will attract these types of businesses. There are relatively few
large sites (20 acres or larger) available near I-5 available for development in the
Southern Willamette Valley and in fact no sites with these characteristics in the Eugene-
Springfield area.
The City has no basis for assuming that redesignation of non-employment lands will
provide the needed larger sites. Lands designated to accommodate the city’s other land
use categories are needed for those planned uses. The City has no basis for assuming
that all of the projected 13,000 new jobs can be located via redevelopment or that the
need for large employment sites can be accommodated through assembly of small land
parcels. Such assumptions would not take into account existing life cycle value of
buildings, on-site compatibility of new uses with existing uses or the ability of all affected
parties to be able to satisfy site needs at these locations. Springfield will need to add
land to its Urban Growth Boundary to accommodate forecast employment growth and
provide larger sites for target industry employers if the City is to meet local community
development objectives.
Adoption of the study will establish a clear economic development direction that identifies the
city’s strengths and opportunities, and its position in the broader Southern Willamette Valley
region. Adoption of the study will facilitate employment opportunities and job creation in
Springfield by identifying industrial/employment land needs and developing an economic
development strategy aimed at selected target industries.
ATTACHMENTS
Attachment 1: Draft Springfield Commercial and Industrial Buildable Lands Inventory and
Economic Opportunities Analysis
Attachment 2: Economic Development Objectives and Implementation Strategies
Attachment 3: Summary of CIBL Stakeholder Committee Process
Attachment 4: Planning Commission Recommendation
Attachment 5: Comments received
City of Springfield:
Commercial and Industrial
Buildable Lands Inventory
and Economic Opportunities
Analysis
Prepared for
City of Springfield
by
ECONorthwest
99 W. Tenth, Suite 400
Eugene, OR 97401
(541) 687-0051
Draft Report
September 2009
Attachment 1-1
Written by:
Robert Parker, Project Director
Beth Goodman, Project Manager
Whit Perkins, Research Assistant
Date submitted: September 2009
ECO Project Number 7139
ECONorthwest
99 W. Tenth, Suite 400
Eugene, OR 97401
(541) 687-0051
Attachment 1-2
Acknowledgements
Numerous people contributed to the completion of the Springfield economic opportunities
analysis. We would like to acknowledge the hard work of the project Steering Committee,
Technical Advisory Committee, and City of Springfield Staff.
Steering Committee
The Steering Committee provided community and business input in the economic
opportunities analysis. The Steering Committee provided guidance on developing
Springfield’s economic development strategy and provided input on assumptions used in
the economic opportunities analysis. Steering Committee members included: City of
Springfield elected or appointed officials, local business owners and business people, land-
use advocacy groups, and residents of Springfield.
Lee Beyer, Planning Commissioner, Committee Co-Chair
Dan Egan, Executive Director, Springfield Chamber of Commerce, Committee Co-Chair
Naomi Campollo, Springfield High School Student
Philip Farrington, Director, Land Use Planning & Development, PeaceHealth
George Grier, Board Member, Lane County Farm Bureau
Brianna Huber, Thurston High School Student
Mike Kelly, Springfield citizen
Johnny Kirschenmann, Planning Commissioner
Mayor Sid Leiken
Donna Lentz, Springfield citizen
Dave Marra, DC Real Estate
Doug McKay, McKay Commercial Properties LLC
Eve Montanaro, Watershed Coordinator, Middle Fork Willamette Watershed Council
Don OldenBurg, Symantec
Lauri Segel, Planner. Goal 1 Coalition
Tim Stokes, Local business owner
Guy Weese, Board Member Emerald Empire Art Association
Kari Westlund, Executive Director, Convention Visitors Association of Lane County
Steven Yett, Paramount Center, LLC.
Richard Boyles, as alternate to Kari Westlund
Jim Welsh, JD Welsh Company as alternate to Dave Mara
Attachment 1-3
Technical Advisory Committee
The Technical Advisory Committee (TAC) provided technical input in the economic
opportunities analysis. The TAC included representatives from the City of Springfield
Public Works Department, local service agencies, and State agencies.
Mary Bridget Smith, Attorney, City of Springfield Attorney's Office
Ken Vogeney, City Engineer, City of Springfield Engineering
Matt Stouder, Engineering Supervisor, City of Springfield Engineering
Len Goodwin, Assistant Public Works Director, City of Springfield Public Works
Brian Conlon, Maintenance Division Manager, City of Springfield Public Works Maintenance
Greg Ferschweiler, Maintenance Supervisor, City of Springfield Public Works Maintenance
Tom Boyatt, Transportation Division Manager, City of Springfield Transportation
Jon Driscoll, Transportation Engineer in Training, City of Springfield Transportation
John Tamulonis, Community Development Manager, Springfield Economic Development
Agency
Courtney Griesel, Planner, Springfield Economic Development Agency
Ed Moore, Field Representative, Department of Land Conservation and Development
Jason Dedrick, Associate Planner, Eugene Planning Department
Stephanie Shultz, Planner, Lane County Planning Department
Jack Roberts, Executive Director, Lane Metro Partnership
Chuck Gottfried, Assistant Manager, Metropolitan Wastewater Commission
George Walker, Stormwater Facilities Planner, Metropolitan Wastewater Commission,
David Helton, Transportation/Land Use Planner, Oregon Department of Transportation
Bob Warren, Business Development Officer, Oregon Economic & Community Development
Department
Jeff DeFranco, Director of Communications and Facilities, Springfield School District
Will Lewis, Springfield School District
Robert Linahan, General Manager, Springfield Utility Board
Greg Hyde, Planning and Development Manager, Willamalane Parks and Recreation District
City of Springfield Staff
David Reesor, Senior Planner
Bill Grile, Development Services Director
Greg Mott, Planning Manager
Linda Pauly, Planning Supervisor
Mark Metzger, Senior Planner
Susie Smith, Public Works Director;
Brandt Melick, GIS Program Supervisor;
Michael Engelmann, GIS Analyst
Attachment 1-4
Table of Contents
Page
EXECUTIVE SUMMARY ......................................................................................................................................... I
TARGET INDUSTRIES ................................................................................................................................................... I
COMPARISON OF LAND CAPACITY AND DEMAND ..................................................................................................... III
CHARACTERISTICS OF NEEDED SITES ........................................................................................................... V
IMPLICATIONS.......................................................................................................................................................... VI
CHAPTER 1. INTRODUCTION ............................................................................................................................... 1
BACKGROUND ........................................................................................................................................................... 1
FRAMEWORK FOR ECONOMIC DEVELOPMENT PLANNING IN OREGON ........................................................................ 2
ORGANIZATION OF THIS REPORT ................................................................................................................................ 3
CHAPTER 2. LAND AVAILABLE FOR INDUSTRIAL AND OTHER EMPLOYMENT USES ..................... 5
DEFINITIONS .............................................................................................................................................................. 7
CONSTRAINTS .......................................................................................................................................................... 10
RESULTS .................................................................................................................................................................. 11
SHORT-TERM LAND SUPPLY ..................................................................................................................................... 25
CHAPTER 3. ECONOMIC TRENDS AND FACTORS AFFECTING FUTURE ECONOMIC GROWTH IN
SPRINGFIELD .......................................................................................................................................................... 29
AVAILABILITY OF LABOR ........................................................................................................................................ 29
CHANGES IN EMPLOYMENT ...................................................................................................................................... 35
REGIONAL BUSINESS ACTIVITY ............................................................................................................................... 38
SPRINGFIELD’S COMPARATIVE ADVANTAGES ......................................................................................................... 40
CHAPTER 4. LAND DEMAND AND SITE NEEDS IN SPRINGFIELD ........................................................... 45
POTENTIAL GROWTH INDUSTRIES ............................................................................................................................ 45
SITE NEEDS .............................................................................................................................................................. 53
CHAPTER 5. LAND CAPACITY AND DEMAND ............................................................................................... 57
COMPARISON OF LAND CAPACITY AND DEMAND ..................................................................................................... 57
CHARACTERISTICS OF NEEDED SITES ....................................................................................................................... 59
IMPLICATIONS.......................................................................................................................................................... 63
APPENDIX A. NATIONAL, STATE, COUNTY, AND LOCAL TRENDS ........................................................ 67
APPENDIX B. FACTORS AFFECTING FUTURE ECONOMIC GROWTH IN SPRINGFIELD ............... 105
APPENDIX C. EMPLOYMENT FORECAST AND SITE NEEDS FOR INDUSTRIAL AND OTHER
EMPLOYMENT USES ........................................................................................................................................... 119
Attachment 1-5
Attachment 1-6
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page i
Executive Summary
This report presents an Economic Opportunities Analysis (EOA) for the
City of Springfield consistent with the requirements of statewide planning
Goal 9 and the Goal 9 administrative rule (OAR 660-009). A goal of this
project is to establish a clear economic development direction that
identifies the city’s strengths and opportunities, and its position in the
broader Southern Willamette Valley region. This project will facilitate
employment opportunities and job creation in Springfield by identifying
industrial/employment land needs and developing an economic
development strategy aimed at selected target industries.
WHAT IS SPRINGFIELD’S ECONOMIC DEVELOPMENT VISION?
Springfield is a business-oriented city. The City is undergoing
revitalization, with on-going redevelopment efforts in Downtown and
Glenwood, and the recent opening of the hospital at RiverBend. The City’s
vision for economic growth over the next 20-years combines sustaining
existing businesses and helping them expand and embracing a broad
variety of new opportunities for growth.
The economic development strategy for Springfield can be summarized as
follows:
(1) Facilitate the redevelopment of Downtown Springfield and
Glenwood through strategic infrastructure and other investments
from programs such as urban renewal and planning for
redevelopment.
(2) Provide sites with a variety of site characteristics to meet both
commercial and industrial economic opportunities, including
providing sites that are available for relatively fast development.
This includes providing large sites for major employers.
(3) Use land within the existing urban growth boundary efficiently,
through promoting redevelopment, infill development, and dense
development in nodal areas. The study assumes that 52% of new
employment during the planning period will locate on lands that
are already developed.
(4) Provide infrastructure efficiently and fairly by coordinating capital
improvement planning with economic development planning.
(5) Support and assist existing businesses within Springfield by
assessing what help businesses need and developing programs to
respond to business needs.
Attachment 1-7
Page ii ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
(6) Attract and develop new businesses, especially those related to
regional business clusters. The City would like to build on the
developing health care cluster, promote development of high-tech
businesses, and attract sustainable businesses.
(7) Maintain flexibility in planning through providing efficient
planning services and developing flexible planning policies to
respond to the changing needs of businesses.
This is a brief summary of Springfield’s economic development strategy.
Chapter 3 of this report provides more detail on Springfield’s comparative
advantages and target industries; the Springfield Economic Development
Strategy (under separate cover) articulates the City’s economic
development vision.
TARGET INDUSTRIES
An analysis of growth industries in Springfield should address two main
questions: (1) Which industries are most likely to be attracted to the
Eugene-Springfield area? and (2) Which industries best meet Springfield’s
economic objectives? The types of industries that Springfield wants to
attract have the following attributes: high-wage, stable jobs with benefits;
jobs requiring skilled and unskilled labor; employers in a range of
industries that will contribute to a diverse economy; and industries that
are compatible with Springfield’s community values.
The characteristics of Springfield will affect the types of businesses most
likely to locate in Springfield. Springfield’s attributes that may attract
firms are: the City’s proximity to I-5, high quality of life, proximity to the
University of Oregon, the presence of the RiverBend campus, positive
business climate, availability of skilled and semi-skilled labor, and
proximity to indoor and outdoor recreational opportunities. Table S-1
summarizes target industries for Springfield during the 2010 to 2030
planning period.
Attachment 1-8
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page iii
Table S-1. Target industries, Springfield, 2010-2030
Target Industry Types of firms Attraction to Springfield
Medical Services Medical firms, medical research firms,
and other professional services
Development of a medical cluster at
RiverBend
Services for seniors Health services that provide services
to older people, such as assisted living
facilities or retirement centers
Aging population and presence of
RiverBend Hospital
Small Scale
Manufacturing
Manufacturers of: medical equipment,
high-tech electronics, recreational
equipment, furniture manufacturing,
specialty apparel, and other specialty
manufacturing
Labor force, existing businesses, land
availability, proximity to natural
resources
Call Centers Call centers Existing call center cluster and trained
labor force
Back-Office
Functions
Back-office functions include
administrative functions, such as
accounting or information technology
High quality of life, available and
trained labor force, and relatively low
wages
Tourism Industries that serve tourists, such as
food services and accommodations
Outdoor recreational opportunities and
regional events such as the Olympic
Track and Field trials, the Oregon
Country Fair, or the University of
Oregon Bach Festival
Specialty Food
Processing
Food processing firms, such as those
that specialize in organic or natural
foods or wineries
Proximity to agricultural resources
High-Tech The types of firms range from high-
tech manufacturing to data centers to
software development
Access to highly educated labor,
access to comparatively inexpensive
electricity, and high quality of life
Professional and
Technical Services
Engineering, research, medical-related
professionals, and other professional
services that are attracted to high-
quality settings
Access to highly educated labor and
high quality of life
Green businesses Green construction firms, organic food
processing, sustainable logging and/or
lumber products manufacturing, or
alternative energy production
Access to highly educated labor,
access to natural resources, and high
quality of life
Corporate
Headquarters
Corporate headquarters High quality of life, location along I-5,
and availability of educated workers
Services for
Residents
Retail and government services,
especially education
Growing population
Attachment 1-9
Page iv ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
COMPARISON OF LAND CAPACITY AND DEMAND
This section presents an analysis of land availability and capacity for
employment uses in Springfield. The key conclusions in this section are:
(1) The majority of employment growth in Springfield will not
require vacant land. The analysis concludes that that 52% of new
employment would not require vacant land, consistent with the
City’s economic development strategies to encourage
redevelopment, especially in Downtown and Glenwood. This
portion of employment addresses the OAR 660-024-0050
requirements that the City consider “land use efficiency measures”
prior to expanding the UGB. The EOA does not describe the
specific policies the City will adopt to achieve this level of infill and
redevelopment. Those policies, however, will be adopted as part of
the City’s overall UGB justification.
(2) Springfield will need employment land with characteristics that
cannot be found within the existing UGB. The City will need 17
sites with about 640 acres of industrial and other employment land
on sites five acres and larger that cannot be accommodated within
the existing UGB.
Table S-2 shows a comparison of land supply and need in terms of sites by
site size, based on the analysis of potential growth industries in
Springfield in Chapter 4. The results show that Springfield has a deficit of
about 6 industrial sites and 44 commercial and mixed use sites.
Attachment 1-10
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page v
Table S-2. Comparison of vacant land supply and site needs, industrial and
other employment land, Springfield UGB, 2010-2030
Source: ECONorthwest.
Converting from the site needs shown in Table S-2 to an estimate of land
needs requires making assumptions about average site sizes needed in
Springfield. Table S-3 shows average site for needed sites in Springfield.
Table S-3. Average size of needed sites, Springfield UGB
Source: ECONorthwest
Table S-4 shows total sites needed (from Table S-2) and total land need
(based on number of sites needed in Table S-2 and average site size in
Table S-3). The results show that Springfield has a deficit of the following
land types for the 2010 to 2030 period:
• Industrial land. Springfield has a need for 450 acres of industrial
land on six sites. Springfield has a need for three 50 acre sites, and
need for three 100 acre sites. In the context of this study, industrial
uses means any major employer that would be allowed in an
industrial land designation (e.g., campus industrial, light-medium
industrial, light-medium industrial mixed use, heavy industrial, or
special heavy industrial).
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50 Total
Buildable Land Inventory
Vacant
Industrial 72 24 20 12 0 0 128
Commercial and Mixed Use 104 14 6 4 0 0 128
Redevelopable
Industrial 122 28 31 5 1 0 187
Commercial and Mixed Use 305 20 15 0 0 0 340
Total Buildable Sites
Industrial 194 52 51 23 1 0 321
Commercial and Mixed Use 409 34 21 4 0 0 468
Site Needs
Needed sites
Industrial 5 7 13 16 4 3 48
Commercial and Mixed Use 220 53 35 14 1 0 323
Surplus (deficit) of sites
Industrial 189 45 38 7 (3) (3)273
Commercial and Mixed Use 189 (19) (14) (10) (1)0 145
Site Size (acres)
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50
Industrial 0.5 1.5 3.0 15.0 50.0 100.0
Commercial and Mixed Use 0.3 1.5 3.0 15.0 40.0 50.0
Site Size (acres)
Attachment 1-11
Page vi ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
• Commercial sites. Springfield has a need for 261 acres of
commercial land on 44 sites. Springfield’s commercial site needs
range from sites 1 to 2 acres in size to one site that is 40 acres in
size.
Table S-4. Total employment site and land needs, Springfield UGB, 2010-2030
Source: ECONorthwest
Note: Table S-4 shows total site and land needs for the 2010-2030 period.
The summary of land needs in Table S-4 shows Springfield’s land need for
all sites of all sizes. One of the City’s economic development strategies is
to encourage redevelopment, especially in Downtown and Glenwood.
Springfield concludes that 187 industrial sites and 340 commercial and
mixed-use sites would redevelop to address land needs over the 20-year
period. In addition to this assumption about redevelopment, Springfield
assumes that all land needs on sites smaller than five acres would be
accommodated through redevelopment. The City had a deficit of 23
commercial and mixed use sites smaller than five acres, which would
require 71 acres of land (Table S-4).
Table S-5 shows Springfield’s employment land deficiency, assuming that
all site needs for sites smaller than five acres would be addressed through
redevelopment. In short, Table S-5 shows the amount of land Springfield
will need to add to its UGB to accommodate forecast employment growth
and site needs. Springfield has a deficiency of six industrial sites on 450
acres and eleven commercial and mixed-use sites on about 190 acres that
cannot be accommodated within the existing UGB over the 2010 to 2030
period.
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50 Total
Industrial
Sites needed none none none none 3 3 6
Land need (acres) none none none none 150 300 450
Commercial and Mixed Use
Sites needed none 19 14 10 1 0 44
Land need (acres)none 29 42 150 40 0 261
Total sites needed none 19 14 10 4 3 50
Total acres needed none 29 42 150 190 300 711
Site Size (acres)
Attachment 1-12
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page vii
Table S-5. Employment site and land deficiency, Springfield UGB,
2010-2030
Source: ECONorthwest
Note: Total sites and total acres needed represent the sites and acres Springfield needs to add to its UGB.
CHARACTERISTICS OF NEEDED SITES
The Goal 9 Administrative Rule (OAR 660-009) requires that jurisdictions
describe the characteristics of needed sites (OAR 660-009-0025(1)). The
Administrative Rule defines site characteristics as follows in OAR 660-009-
0005(11):
(11) "Site Characteristics" means the attributes of a site necessary for a
particular industrial or other employment use to operate. Site
characteristics include, but are not limited to, a minimum acreage or
site configuration including shape and topography, visibility, specific
types or levels of public facilities, services or energy infrastructure, or
proximity to a particular transportation or freight facility such as rail,
marine ports and airports, multimodal freight or transshipment
facilities, and major transportation routes.
The site needs analysis in Chapter 4 identified site needs for five types of
buildings: warehousing and distribution, general industrial, office, retail,
and other services. The characteristics of needed sites for each of these
building types are described in Chapter 5. In general, the site
characteristics for commercial and industrial sites include the following:
(1) Site size. The analysis concludes that Springfield will need to add
land to its UGB for sites larger than five acres. Site sizes vary from
five to 20 acres to greater than 50 acres.
(2) Street access. These larger sites will all need to have access to major
streets within Springfield, with some sites located near an
interchange on I-5. Traffic from the sites should not be routed
through residential neighborhoods.
Less
than 5 5 to 20 20 to 50
Greater
than 50 Total
Industrial
Sites needed none none 3 3 6
Land need (acres) none none 150 300 450
Commercial and Mixed Use
Sites needed none 10 1 none 11
Land need (acres)none 150 40 none 190
Total sites needed none 10 4 3 17
Total acres needed none 150 190 300 640
Site Size (acres)
Attachment 1-13
Page viii ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
(3) Topography. The sites should be relatively flat, with not more than
15% slope; with sites that are ideally less than 5% slope.
(4) Access to services. City services should be accessible to the site,
including street access, sanitary sewer, and municipal water. Other
services to sites should include: electricity, phone, and high-speed
telecommunications. Capacity and demand for these services will
vary by uses on each site.
(5) Land ownership. Sites with a single owner are strongly preferred,
to reduce the cost of land assembly.
IMPLICATIONS
The economic opportunities analysis has the following implications for
Springfield’s economic land needs.
• Economic growth. Decision makers and community members that
participated in the economic opportunities analysis agreed that
economic growth is desirable over the planning period. The
employment forecast indicates Springfield will add 13,440 new
employees between 2010 and 2030 using the OAR 660-024-
0040(8)(a)(ii) safe harbor methodology. The economic opportunities
analysis concludes that Springfield will have employment growth
in a wide variety of businesses, from services and retail for
residents to industrial development to medical services. The City
wants to diversify its economy and attract higher wage and
professional jobs.
• Buildable lands. Springfield has 3,415 acres currently designated for
industrial and other employment use. About two-thirds of the land
designated for employment within Springfield’s UGB is considered
developed land that is not expected to redevelop over the 20 year
planning period. Less than 15% of this land is buildable,
unconstrained land. The majority of buildable, unconstrained
employment land in Springfield has existing development on it that
is expected to redevelop over the planning period. Springfield has a
lack of buildable large sites, with one buildable site 20 acres and
larger and 23 buildable sites in the five to 20 acre size range.
• Employment that will not require vacant land. Springfield concludes
that 52% of employment growth would not require vacant
Attachment 1-14
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page ix
employment land.1 Springfield’s assumptions about employment
that will not require vacant land are as follows:
o Fourteen percent of employment (1,918 employees) will
locate in non-employment designations. These
employees will include people with home occupations,
working from home, and businesses that locate in
residential or other non-employment designations. This
assumption is based on the percent of employment
located in non-employment designations in 2006. See
Appendix C and Table C-7 for more information about
this assumption.
o Ten percent of new employment (1,344 employees) will
locate in existing built space. See Appendix C and Table
C-7 for more information about this assumption.
o Twenty-seven percent of new employment (3,669
employees) will locate on redevelopable sites. Table 5-1
shows that Springfield assumes 187 industrial sites and
340 commercial and mixed use sites will redevelop over
the planning period. The estimate of employment on
these sites was based on the average number of
employees per site by site size in 2006. See Chapter 2 for
more information about redevelopment assumptions.
• Redevelopment potential. The analysis of redevelopment potential
and need for employment land assumes that Springfield will have
substantial redevelopment over the planning period. Consistent
with City Council policies, the areas that are expected to have the
most redevelopment in the plan period are in Glenwood, especially
along the Willamette Riverfront and Franklin/McVay corridor ,
and in the Downtown Urban Renewal District. All land deficiencies
for sites smaller than five acres are expected to be addressed
through redevelopment of existing sites. The majority of retail land
needs are expected to be addressed through redevelopment.
The City will need to make strategic investments that support
redevelopment and to continue supporting redevelopment through
City plans and policies. For example, the City has established urban
renewal districts in Glenwood and Downtown to help finance the
public improvements necessary to support redevelopment and is
1 The estimate of 52% of new employment not requiring vacant land is based on the assumption that 1,918 employees will
locate in non-employment designations, 1,344 employees will locate in existing built space, and 3,669 employees will locate on
redevelopable sites. The total number of new employees not requiring new land is 6,931 employees, which is approximately
52% of the forecasted growth of 13,440 jobs.
Attachment 1-15
Page x ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
currently conducting planning studies in both districts to update
plans and policies. Redevelopment in Springfield requires a
variable level of investments in public infrastructure to provide and
upgrade public facilities and remove existing impediments to
development.
This portion of employment addresses the OAR 660-024-0050
requirements that the City consider “land use efficiency measures”
prior to expanding the UGB. The EOA does not describe the
specific policies the City will adopt to achieve this level of infill and
redevelopment. Those policies, however, will be adopted as part of
the City’s overall UGB justification.
• Need for large sites. Springfield will be able to meet employment
land needs on sites five acres and smaller within the existing UGB,
through redevelopment, infill development, and employment uses
on non-employment land (e.g., home occupations). The
employment land needs that may not be met within the UGB are
for sites five acres and larger. The City currently has only one
buildable site 20 acres or larger.
Availability of sites 20 acres and larger is important for attracting or
growing large businesses, which are often traded-sector businesses.
If the City does not have these large sites, there is little chance that
the City will attract these types of businesses. While it may not be
clear exactly what the business opportunities may be in ten to
twenty years, it is clear that these businesses will not locate in
Springfield if land is not available for development. For example, in
the past twenty years, most of the Gateway area developed. The
area has a mix of uses including a regional mall, apartments,
offices, and more recently, the PeaceHealth Campus. Twenty-years
ago it would have seemed highly unlikely that PeaceHealth would
build their new facility in Springfield. If the City had not had
desirable, serviceable land available, PeaceHealth would probably
not have located their new facility in Springfield.
• Short-term land supply. Based on the Goal 9 definition of short-term
land supply and criteria for “engineering feasibility,” the majority
of buildable land within the Springfield UGB is part of the short-
term land supply, assuming that funding is available to extend
services. The Goal 9 rule does not account for land availability,
such as whether the landowner is willing to sell it or the owner is
willing to redevelop it. The Goal 9 rule also does not account for
differences in site characteristics, such as site size. As a result,
developers may have difficulty finding developable land with
specific site characteristics, such as large sites with highway access.
Attachment 1-16
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 1
Chapter 1 Introduction
This report presents an Economic Opportunities Analysis (EOA) for the
City of Springfield consistent with the requirements of statewide planning
Goal 9 and the Goal 9 administrative rule (OAR 660-009). Goal 9 describes
the EOA as “an analysis of the community's economic patterns,
potentialities, strengths, and deficiencies as they relate to state and
national trends” and states that “a principal determinant in planning for
major industrial and commercial developments should be the comparative
advantage of the region within which the developments would be
located.”
BACKGROUND
In 2007, the Oregon Legislature passed House Bill 3337 which directs
Springfield and Eugene to establish separate Urban Growth Boundaries
(UGBs). The city started work on a key element of its new UGB in 2006 by
initiating a residential buildable lands inventory and contracting
ECONorthwest to conduct a Goal 10 housing needs analysis. With the
passage of HB 3337, the City is preparing additional studies necessary for
the establishment of a separate UGB—including an economic
opportunities analysis (EOA), and an economic development strategy.
The project includes two key phases:
1. An inventory of commercial and industrial lands and a
projection of the acreage needed to accommodate Springfield’s
future commercial and industrial needs. This phase is called the
economic opportunities analysis (EOA).
2. An analysis of alternative locations where the UGB might be
expanded to accommodate the city’s future commercial,
industrial, and residential needs—if the City identifies a
deficiency of lands. This phase is called the alternatives analysis.
This report presents the results of the economic opportunities analysis.
The economic development strategy is presented in a separate document,
as is the alternatives analysis.
ECONorthwest worked closely with City staff, a Technical Advisory
Committee, and a Stakeholder Committee in preparing the Springfield
Economic Opportunities Analysis. This report incorporates many
comments provided by these groups.
Attachment 1-17
Page 2 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
FRAMEWORK FOR ECONOMIC DEVELOPMENT PLANNING IN
OREGON
The content of this report is designed to meet the requirements of Oregon
Statewide Planning Goal 9 and the administrative rule that implements
Goal 9 (OAR 660-009). The Land Conservation and Development
Commission adopted amendments to this administrative rule in
December 2005.2 The analysis in this report is designed to conform to the
requirements for an Economic Opportunities Analysis in OAR 660-009 as
amended.
1. Economic Opportunities Analysis (OAR 660-009-0015). The Economic
Opportunities Analysis (EOA) requires communities to identify the
major categories of industrial or other employment uses that could
reasonably be expected to locate or expand in the planning area
based on information about national, state, regional, county or local
trends; identify the number of sites by type reasonably expected to
be needed to accommodate projected employment growth based on
the site characteristics typical of expected uses; include an
inventory of vacant and developed lands within the planning area
designated for industrial or other employment use; and estimate
the types and amounts of industrial and other employment uses
likely to occur in the planning area. Local governments are also
encouraged to assess community economic development potential
through a visioning or some other public input based process in
conjunction with state agencies.
2. Industrial and commercial development policies (OAR 660-009-0020).
Cities with a population over 2,500 are required to develop
commercial and industrial development policies based on the EOA.
Local comprehensive plans must state the overall objectives for
economic development in the planning area and identify categories
or particular types of industrial and other employment uses desired
by the community. Local comprehensive plans must also include
policies that commit the city or county to designate an adequate
number of employment sites of suitable sizes, types and locations.
The plan must also include policies to provide necessary public
facilities and transportation facilities for the planning area. Finally,
cities within a Metropolitan Planning Organization (which includes
Springfield) must adopt policies that identify a competitive short-
2 The amended OAR 660-009, along with a Goal 9 Rule Fact Sheet, are available from the Oregon Department of Land
Conservation and Development at http://www.oregon.gov/LCD/econdev.shtml.
Attachment 1-18
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 3
term supply of land for desired industrial and other employment
uses as an economic development objective.
3. Designation of lands for industrial and commercial uses (OAR 660-009-
0025. Cities and counties must adopt measures to implement
policies adopted pursuant to OAR 660-009-0020. Appropriate
implementation measures include amendments to plan and zone
map designations, land use regulations, public facility plans, and
transportation system plans. More specifically, plans must identify
the approximate number, acreage and characteristics of sites
needed to accommodate industrial and other employment uses to
implement plan policies, and must designate serviceable land
suitable to meet identified site needs.
Plans for cities and counties within a Metropolitan Planning
Organization or cities and counties that adopt policies relating to
the short-term supply of land must designate suitable land to
respond to economic development opportunities as they arise.
This report is an Economic Opportunities Analysis, the first key element
required by Goal 9. This EOA includes an analysis of national, state,
regional, and county trends as well as an employment forecast that leads
to identification of needed development sites. It also includes an inventory
of buildable commercial and industrial land in Springfield.
ORGANIZATION OF THIS REPORT
The remainder of this report is organized as follows:
• Chapter 2, Land Available for Industrial and Other
Employment Uses presents an inventory of industrial and other
employment lands.
• Chapter 3, Economic Trends and Factors Affecting Future
Economic Growth in Springfield summarizes historic
economic trends that affect current and future economic
conditions in Springfield. It also summarizes Springfield
comparative advantages formed by the mix of factors present in
Springfield
• Chapter 4, Land Demand and Site Needs in Springfield
presents the employment forecast for Springfield and an
estimate of how much land is needed to accommodate the 20-
year employment forecast. It also describes the types of sites
that are needed to accommodate industries that are likely to
locate or expand in Springfield.
Attachment 1-19
Page 4 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
• Chapter 5, Implications presents a comparison of land supply
and site needs and discusses the implications of the Economic
Opportunities Analysis.
This report also includes three appendices:
• Appendix A, Review of National, State, Regional, County, and
Local Trends describes national, state, and local economic
trends that will influence the regional economy. Appendix A
presents detailed information about economic trends that may
affect Springfield, which is summarized in Chapter 3.
• Appendix B, Factors Affecting Future Economic Growth in
Springfield discusses the comparative advantages formed by
the mix of factors present in Springfield. Springfield’s
comparative advantages are summarized in Chapter 3.
• Appendix C, Employment Forecast and Site Needs for
Industrial and Other Employment Uses presents an
employment forecast and analysis of needed sites for
Springfield for the period 2010-2030 and is summarized in
Chapter 4.
Attachment 1-20
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 5
Land Available for Industrial
Chapter 2 and Other Employment Uses
The Springfield Commercial and Industrial Buildable Lands (CIBL)
inventory is intended to identify lands within the Springfield urban
Growth Boundary (UGB) that are suitable for development and can
accommodate employment growth. Buildable lands inventories are
sometimes characterized as supply of land to accommodate growth.
Population and employment growth drive demand for land. The amount of
land needed depends, in part, on the density of development as well as
assumptions about redevelopment and infill.
This chapter presents the CIBL inventory for the City of Springfield. The
results are based on analysis of Geographic Information System data
provided by the City of Springfield Public Works Department and the
Lane Council of Governments. The buildable land inventory also used
aerial orthophotographs and review by city staff for verification.
The buildable lands inventory includes lands east of the Interstate 5 center
line in the Metro UGB. For the purpose of the inventory, these lands were
considered to be in the Springfield portion of the UGB.3
ECO worked closely with City Staff, a Technical Advisory Committee, and
a Stakeholder Committee during the development and review of the
Springfield commercial and industrial buildable lands inventory (CIBL).
ECO developed the inventory using the following steps:
• Assemble and document datasets. ECO identified data from the
Regional Land Information Database (RLID) and GIS data from the
City of Springfield and the Lane Council of Governments as
primary datasets on which the inventory and analysis was built.
RLID includes assessment and taxation data maintained by Lane
County.
• Preliminary analysis. ECO conducted a preliminary analysis with the
GIS and data tables selected for inclusion in the database. The
purpose of this task was to work with City staff and the TAC to
3 Springfield did not have a separate UGB at the time this study was completed. This study is intended to meet part of the
requirements of H.B. 3337 which will lead to the establishment of a UGB for the City of Springfield independent of the
Eugene-Springfield Metropolitan UGB.
Attachment 1-21
Page 6 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
determine the optimal definitions and supporting methodology to
base the final analysis and database structure.
• Data processing and GIS analysis. In this step ECO performed the GIS
analysis and data processing steps necessary to populate the
database. Table 2-1 shows plan designations that were included in
the commercial and industrial buildable lands inventory. All of the
designations included in the inventory allow employment outright.
The inventory, however, includes several mixed use designations
that allow both employment and housing. The inventory generally
uses the 2004 Metro Plan designations with two exceptions: (1)
Glenwood, where a 2005 plan amendment changed the designation
on approximately 47 acres from Light Medium Industrial Mixed
Use to Mixed Use; and (2) the PeaceHealth site where land was
redesignated from residential to designations that allow
employment.
Table 2-1. Metro plan designations included in the Springfield
commercial and industrial buildable lands inventory
Note: Allowed land uses indicates what uses are allowed in each plan designation. The
CIBL includes any plan designation that allows employment, including mixed use
designations.
• Verification. ECO used a multi-step verification process. The initial
verification occurred as part of the preliminary analysis. This step
included a staff-level review of preliminary database output (maps)
showing the land base and plan designations. The second round of
verification involved a “rapid visual assessment” of land
classifications using GIS and recent aerial photos for this analysis.
The rapid visual assessment involved reviewing classifications
overlaid on 2005 aerial photographs to verify uses on the ground.
ECO reviewed all tax lots included in the inventory using the rapid
Plan Designation Commercial Industrial Residential In CIBL?
Campus Industrial yes yes no yes
Commercial yes no no yes
Commercial Mixed Use yes no yes yes
Heavy Industrial no yes no yes
High Density Res Mixed Use yes no yes yes
Light Medium Industrial no yes no yes
Light Medium Industrial Mixed Use no yes no yes
Major Retail Center yes no no yes
Medium Density Res Mixed Use yes no yes yes
Mixed Use yes yes yes yes
Special Heavy Industrial no yes no yes
Allowed Land Uses (yes/no)
Attachment 1-22
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 7
visual assessment methodology. The third round of verification
involved city staff verifying the rapid visual assessment output.
The draft inventory was then circulated for review by the TAC and
the Stakeholder Committee. This review resulted in a number of
changes which are reflected in the inventory as presented in this
report.
In summary, ECO used a systematic process to complete the CIBL
inventory that was intended to provide the greatest degree of accuracy
possible.
DEFINITIONS
The first step in the buildable inventory was to develop working
definitions and assumptions. ECO initially classified land using a rule-
based methodology. The rules applied by ECO to classify land are
described below. The accompanying maps show the results of the
application of those rules, with some adjustments made based on review
of 2004 aerial photos and building permit data.
ECO began the buildable lands analysis with a tax lot database provided
by the City’s GIS Staff. The inventory used tax lots as the unit of analysis
because (1) it is a commonly accepted unit for land inventories, and (2) tax
lots link directly to other data sets (e.g., assessment data, addresses, etc.)
The tax lot database was current as of February 2008. The inventory builds
from the tax lot-level database to estimates of buildable land by plan
designation.
A key step in the buildable lands analysis was to classify each tax lot into
a set of mutually exclusive categories. Consistent with accepted methods
for buildable lands inventories and applicable administrative rules, all tax
lots in the UGB are classified into one of the following categories:
• Vacant land. Tax lots that have no structures or have buildings with
very little value. For the purpose of this inventory, lands with
improvement values under $10,0004 are considered vacant (not
including lands that are identified as having mobile homes). 5
4 Improvement values were from 2008 Lane County Assessment and Taxation data and reflect the County’s estimate of the
market value of improvements.
5 Note that this definition is more inclusive than what statewide planning policy requires. OAR 600-009-0005(14) provides the
following definition: "Vacant Land" means a lot or parcel: (a) Equal to or larger than one half-acre not currently containing
permanent buildings or improvements; or (b) Equal to or larger than five acres where less than one half-acre is occupied by
permanent buildings or improvements. The implication of using a more inclusive definition are that more land was
considered available in the inventory than would be if the state definitions were used.
Attachment 1-23
Page 8 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
• Developed land. Land that is developed at densities consistent with
current zoning/plan designation and improvements that make it
unlikely to redevelop during the analysis period. Lands not
classified as vacant, potentially redevelopable, or public are
considered developed.6 Thus, the definition of developed land used
for the CIBL is different (e.g., more inclusive) than the definition in
the administrative rule. For purposes of the CIBL, developed land
is considered committed during the 20-year period and unavailable
for redevelopment.
Lands in public ownership were generally considered unavailable
for development unless identified by City staff as being available
for development at some time during the 20-year planning period.
This includes uses such as electrical substations, parks, and private
cemeteries. Lands in Federal, State, County, or City ownership
were also considered committed.
• Potentially Redevelopable land. Land on which development has
already occurred but on which, due to present or expected market
forces, there exists the potential that existing development will be
converted to more intensive uses during the planning period.
Redevelopable land is a subset of developed land and was
identified using improvement to land value ratios and building
coverage ratios. For the purpose of the CIBL, potentially
redevelopable land corresponds with the definition of “developed
land” as stated in OAR 660-009-0005(1). Redevelopment potential is
discussed in more detail later in this chapter.
The land classifications result in identification of lands that are
vacant or potentially redevelopable. The inventory includes all
lands within the Springfield UGB. Map 2-1 shows lands by plan
designation within the Springfield UGB.
6 Note that OAR 660-009-0005(1) uses the following definition: (1) "Developed Land" means non-vacant land that is likely to be
redeveloped during the planning period. This study defines developed land as developed and defines land “likely to be
redeveloped” as potentially redevelopable.
Attachment 1-24
A MAIN
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Map 2-1
Commercial and Industrial
Plan Designations
ECONorthwest, October 2008
0 2,300 4,6001,150
Feet¯
City Limits
Urban Growth Boundary
Legend
Tax Lots
Plan Designation
Campus Industrial
Commercial
Commercial Mixed Use
Heavy Industrial
LIGHT MED IND MIXED USE
Light Medium Industrial
Major Retail Center
Special Heavy Industrial
Note: PeaceHeath plan amendments are not reflected in the plan designations shown on this map. The PeaceHealth Campus is considered part of the commercial and industrial land base.
Mixed-Use
Medium Density Residential Mixed Use
Attachment 1-25
Page 10 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
CONSTRAINTS
Constraints are factors that preclude land development or affect the
desirability of land for development. OAR 660-009-0005(2) provides the
following definition of “development constraints:”
“Development Constraints” means factors that temporarily or
permanently limit or prevent the use of land for economic
development. Development constraints include, but are not
limited to, wetlands, environmentally sensitive areas such as
habitat, environmental contamination, slope, topography, cultural
and archeological resources, infrastructure deficiencies, parcel
fragmentation, or natural hazard areas.
Thus, the Administrative Rule provides a broad definition of constraints
and leaves discretion for local governments in the application of the
definition. For the purpose of this study, the following factors are
considered absolute development constraints which make employment
land unsuitable for development:
1. Wetlands
2. Floodway
3. Slopes over 15%
4. Riparian resource areas
The following factors are partial development constraints. Land with
these constraints is classified as “constrained” on employment land.
Development can occur on “constrained” land and no deductions were
made from the inventory for these factors.
• Floodplain
• Willamette River Greenway
• BPA Easements
The inventory summary that follows addresses “absolute” and “partial”
constraints separately and summarizes lands as either “unbuildable acres”
(e.g., no development may occur) or “constrained acres” (e.g., one or more
constraints are present but those constraints do not preclude
development). Portions of individual tax lots can be in one or more of the
following categories: “unconstrained,” “constrained,” or “unbuildable”
(e.g., they are not suitable for development).
Attachment 1-26
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 11
RESULTS
LAND BASE
The first step in the CIBL inventory was to determine the land base. This
step was necessary because the inventory only covers a subset of land in
the Springfield UGB (lands that accommodate employment). The land
base is the subset of tax lots that fall within the plan designations included
in the CIBL (see Table 2-1).
Table 2-2 shows acres within the Springfield UGB and city limits in 2008.
According to the City GIS data, Springfield has about 14,603 acres within
its UGB. Of the 14,603 acres, 12,139 acres (about 83%) are in tax lots. Land
not in tax lots is primarily in streets and waterways. Springfield has about
9,958 acres within its City Limits; of these 8,060 acres (about 81% of total
acres in the City Limit) are in tax lots. Additionally, the City has about
4,645 acres between the City Limits and Urban Growth Boundary (the
UGA); of this about 4,079 acres are in tax lots.
Table 2-2. Acres in Springfield UGB and
City Limit, 2008
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Urban Growth Area is the unincorporated area between the City Limits and Urban Growth Boundary
Table 2-2 summarizes all land in the Springfield UGB. The next step was
to identify the commercial and industrial land base (e.g., lands with plan
designations that allow employment or “employment lands”). The land
base includes traditional commercial and industrial designations, as well
as mixed-use designations. Table 2-1 provides a list of plan designations
included in the land base. Note that not all of the land in mixed-use
designations will be used for employment.
Table 2-3 shows that about 3,415 acres within the Springfield UGB are
included in the commercial and industrial land base. Thus, about 28% of
land within the Springfield UGB is included in the Commercial and
Industrial land base. The database includes all land in tax lots that have
any portion that is in a commercial or industrial plan designation.
Area Tax Lots
Total
Acres
Acres in
Tax Lots
Percent
in Tax
Lots
City Limits 19,477 9,958 8,060 81%
Urban Growth Area 3,150 4,645 4,079 88%
Total 22,627 14,603 12,139 83%
Attachment 1-27
Page 12 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table 2-3. Lands designated for commercial and industrial uses,
Springfield UGB, 2008
Source: analysis by ECONorthwest
Table 2-4 summarizes acres by plan designation for employment lands
within the Springfield UGB. Of lands designated for employment, about
65% (2,203 acres) are in industrial designations, 21% (716 acres) are in
commercial designations, and 14% (495 acres) are in mixed use
designations. Not all of the land in mixed use designations will be used
for employment—housing is a key element of mixed-use designations.
Table 2-4. Acres by employment plan designation, Springfield UGB,
2008
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Totals may be off by up to one acre due to rounding errors.
Table 2-5 shows acres by classification and constraint status for the
Springfield UGB in 2008. Analysis by constraint status (the table columns)
shows that about 2,040 acres are classified as built or committed (e.g.,
unavailable for development), 543 were classified as vacant. Not all
Area Value
Springfield UGB
Number of Tax Lots 22,627
Acres in Tax Lots 12,139
Springfield CIBL
Tax Lots in Employment Designations 2,104
Acres in Land Base in Employment Designations 3,415
Plan Designation Tax Lots
Total Acres
in Tax Lots
Industrial
Campus Industrial 43 352
Light Medium Industrial 375 541
Heavy Industrial 250 1,163
Special Heavy Industrial 5 147
Subtotal 673 2,203
Commercial
Commercial 731 570
Community Commercial 4 30
Major Retail Center 119 116
Subtotal 854 716
Mixed Use
Commercial Mixed Use 430 222
Light Medium Industrial Mixed Use 19 116
Medium Density Res Mixed 64 34
Mixed Use 64 123
Subtotal 577 495
Total 2,104 3,415
Attachment 1-28
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 13
vacant lands are available for development—the inventory identified 189
unbuildable acres on vacant tax lots, leaving 355 acres of vacant, Suitable
land.
The inventory identified 669 acres that are potentially redevelopable based
on the criteria described in the definitions section. All of these lands have
existing improvements, but the value or character of the improvements
suggests redevelopment potential. Of lands with redevelopment potential,
88 acres are unbuildable and the remaining 581 acres are buildable (e.g.,
they have redevelopment potential).
Table 2-5. Acres by classification, Springfield UGB, 2008
Source: City of Springfield data; analysis by ECONorthwest Note: Totals may be off by up to one acre due to rounding errors.
Classification Tax Lots
Acres in Tax
Lots
Developed
Acres
Unbuildable
Acres
Constrained
Acres
Unconstrained
Acres
Developed 1,295 2,039 1,710 329 0 0
Master Plan 18 163 0 2 0 161
Potentially Redevelopable 535 669 na 88 37 544
Vacant 256 543 0 189 76 279
Total 2,104 3,415 1,710 608 112 985
Suitable Land
Attachment 1-29
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Map 2-2
Commercial and Industrial
Land by Classification and
Nodal Overlay Status
ECONorthwest, July 2009
0 2,700 5,4001,350
Feet¯
City Limits
Urban Growth Boundary
Legend
Tax Lots
Classification
Note: Master planned category includes sites with
approved master plans. PeaceHealth and
Marcola Meadows are included in this classification.
Developed
Potentially Redevelopable
Vacant
Master Planned
Nodal Development Overlay
Attachment 1-30
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 15
VACANT SUITABLE LAND
The next step in the land inventory is to net out portions of vacant tax lots
that are unavailable for development. Areas unavailable for development
fall into two categories: (1) developed areas of partially vacant tax lots,
and (2) areas with physical constraints (in this instance areas with steep
slopes, waterway buffers, or wetlands).
Table 2-6 shows vacant land by development and constraint status. The
data show that about 189 acres within vacant tax lots have development
constraints that are unsuitable, leaving about 355 vacant suitable acres
within the UGB. About 88 acres of redevelopable land has development
constraints that are unbuildable, leaving about 581 suitable redevelopable
acres within the UGB.
Table 2-6. Vacant land by constraint status, Springfield UGB, 2008
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Totals may be off by up to one acre due to rounding errors.
Table 2-7 shows vacant land by plan designation. Map 2-3 shows the
location of vacant land by plan designation. Map 2-4 shows vacant land
with absolute constraints that are unbuildable and Map 2-5 shows vacant
land with constraints.
Classification Tax Lots
Acres in Tax
Lots
Developed
Acres
Unbuildable
Acres
Constrained
Acres
Unconstrained
Acres
Potentially Redevelopable 535 669 na 88 37 544
Vacant 256 543 0 189 76 279
Total 791 1,212 1,710 277 112 823
Suitable Land
Attachment 1-31
Page 16 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table 2-7. Vacant land by Plan Designation, Springfield UGB, 2008
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Totals may be off by up to one acre due to rounding errors.
Plan Designation Tax Lots
Acres in
Tax Lots
Unbuildable
Acres
Constrained
Acres
Unconstrained
Acres
VACANT LAND
Industrial
Campus Industrial 14 131 77 40 14
Light Medium Industrial 65 124 33 17 74
Heavy Industrial 48 133 32 3 98
Special Heavy Industrial 1 48 39 1 8
Subtotal 128 435 181 61 194
Commercial
Commercial 71 51 3 3 45
Community Commercial
Major Retail Center 11 6 0 0 5
Subtotal 71 57 3 3 51
Mixed Use
Commercial Mixed Use 27 28 2 2 24
Light Medium Industrial Mixed Use
Medium Density Res Mixed 7 2 0 1 1
Mixed Use 12 21 3 9 9
Subtotal 46 51 5 11 34
Total 245 543 189 76 279
Suitable Land
Attachment 1-32
A MAIN
Q
BI-5D
I-105
JASPER5TH28TH MARCOLA42NDCA
M
P
C
R
E
E
K
E
THURSTON
G
CENTENNIAL
MILL
7TH2ND58TH21STOLYMPIC
10TH69THMCKENZIE
HARLOWGATEWAY
32NDMCVAY31ST70TH67THDAISY14TH19TH 66TH30THASPENFRANKLIN36THHW
Y
5
8 48TH35THBELTLINE
FAIRVIEW
HAYDEN BRIDGE
YOLANDA
57THLAURAPIONEER
PARKWAY
EAST52ND18THHIGH BANKS
HWY
9
9
S
COMMERCIAL
INTERNATIONAL
GONYEARAINBOWI-5
ONRAMPGARDENPARKWA
Y
CHAD GAME FARM
PRIV
A
T
E
BOB STRAUB
MENLO
BRACKENFERNI
-5
A
30THPRIVATE DAISY
GGAME FARM
E
FRANKLIN
MAIN
JASPERGAME FARMCity of Springfield
O r e g o n
Map 2-3
Vacant Commercial and
Industrial Land and
Development Constraints
ECONorthwest, July 2009
0 2,500 5,0001,250
Feet¯
City Limits
Urban Growth Boundary
Legend
Tax Lots
Plan Designation
Campus Industrial
Commercial
Commercial Mixed Use
Heavy Industrial
LIGHT MED IND MIXED USE
Light Medium Industrial
Major Retail Center
Medium Density Res Mixed
Mixed Use
Special Heavy Industrial
Note: Does not include master planned sites
Attachment 1-33
City of Springfield
O r e g o n
Map 2-4
Vacant Commercial and
Industrial Land and Prohibitive
Development Constraints
ECONorthwest, July 2009.
0 2,300 4,6001,150
Feet¯
City Limits
Urban Growth Boundary
Legend
Tax Lots
Prohibitive Development Constraints
Slopes over 15%
Wetlands
Riparian Resource Areas
Floodway
Plan Designation
Campus Industrial
Commercial
Commercial Mixed Use
Heavy Industrial
LIGHT MED IND MIXED USE
Light Medium Industrial
Major Retail Center
Medium Density Res Mixed
Mixed Use
Special Heavy Industrial
Note: Prohibitive development constraints are constraints that
prohibit development. Lands that have one or more prohibitive constraint are removed from acreages counted as buildable.
Attachment 1-34
City of Springfield
O r e g o n
Map 2-5
Vacant Commercial and
Industrial Land and
Development Constraints
ECONorthwest, July 2009
0 2,100 4,2001,050
Feet¯
City Limits
Urban Growth Boundary
Legend
Tax Lots
Development Constraints
Willamette River Greenway
100-year Floodplain
Plan Designation
Campus Industrial
Commercial
Commercial Mixed Use
Heavy Industrial
LIGHT MED IND MIXED USE
Light Medium Industrial
Major Retail Center
Medium Density Res Mixed
Mixed Use
Special Heavy Industrial
BPA Easements
Note: Development constraints shown on this map do notpreclude development. These constraints may add complexity
to land use review or potentially reduce development density.These areas are counted as constrained, but buildable.
Attachment 1-35
Page 20 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table 2-8 shows vacant land by plan designation and by parcel size.7 This
analysis is useful in that it shows the distribution of vacant land by parcel
size, which allows an evaluation of whether a sufficient mix of parcel sizes
is available. The distribution of buildable land by parcel size varies by
plan designation, with the results showing the City has no vacant tax lots
20 acres or larger.
Table 2-8. Suitable acres in vacant tax lots by plan designation and parcel size,
Springfield UGB, 2008
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Buildable acres includes “constrained” acres and “unconstrained” acres
Note: Acres may not sum to tenths due to rounding errors.
7 The table shows total acres in vacant tax lots (constraints are not netted out)
Plan Designation <0.25
0.25-
0.49
0.50-
0.99
1.00-
1.99
2.00-
4.99
5.00-
9.99
10.00-
19.99
20.00-
50.00 50+ Total
Total Acres
Industrial
Campus Industrial 0.2 0.3 0.0 4.7 18.6 19.7 10.8 0.0 0.0 54.3
Light Medium Industrial 3.5 5.2 9.7 15.3 20.7 6.1 30.0 0.0 0.0 90.5
Heavy Industrial 1.0 2.4 8.8 14.7 29.3 19.0 25.8 0.0 0.0 101.0
Special Heavy Industrial 0.0 0.0 0.0 0.0 0.0 9.1 0.0 0.0 0.0 9.1
Subtotal 4.7 7.9 18.5 34.6 68.6 53.9 66.6 0.0 0.0 254.8
Commercial
Commercial 4.4 6.4 10.8 7.5 6.5 13.0 0.0 0.0 0.0 48.6
Community Commercial
Major Retail Center 0.71.41.81.70.00.00.00.00.05.6
Subtotal 5.0 7.8 12.6 9.3 6.5 13.0 0.0 0.0 0.0 54.1
Mixed Use
Commercial Mixed Use 1.2 1.3 1.9 5.4 7.6 8.5 0.0 0.0 0.0 25.9
Light Medium Industrial Mixed Use
Medium Density Res Mixed 0.5 0.6 0.6 0.0 0.0 0.0 0.0 0.0 0.0 1.7
Mixed Use 0.5 0.3 0.0 4.9 7.2 5.2 0.0 0.0 0.0 18.0
Subtotal 2.2 2.2 2.5 10.3 14.8 13.6 0.0 0.0 0.0 45.6
Total 11.9 17.9 33.6 54.1 89.9 80.5 66.6 0.0 0.0 354.5
Number of Tax Lots
Industrial
Campus Industrial 11035310014
Light Medium Industrial 19 13 12 11 7 1 2 0 0 65
Heavy Industrial 8 6 12 10 8 2 2 0 0 48
Special Heavy Industrial 0000010001
Subtotal 28 20 24 24 20 7 5 0 0 128
Commercial
Commercial 29171652200071
Community Commercial
Major Retail Center 44210000011
Subtotal 33211862200082
Mixed Use
Commercial Mixed Use 125342100027
Light Medium Industrial Mixed Use
Medium Density Res Mixed 4210000007
Mixed Use 41042100012
Subtotal 208484200046
Total 81 49 46 38 26 11 5 0 0 256
Lot Size (Suitable Acres)
Attachment 1-36
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 21
REDEVELOPMENT POTENTIAL
Redevelopment potential addresses land that is classified as developed
that may redevelop during the planning period. While many methods
exist to identify redevelopment potential, a common indicator is
improvement to land value ratio. Different studies use different
improvement to land value ratio thresholds.
Redevelopment potential can be thought of as a continuum—from more
redevelopment potential to less redevelopment potential. The factors that
affect redevelopment are complicated and include location, surrounding
uses, current use, land and improvement values and other factors. To
facilitate a discussion with the Stakeholder Committee about
redevelopment, we established a set of three increasingly inclusive
criteria.
To identify lands with redevelopment potential, ECO analyzed
improvement to land value ratios and building coverage on tax lots. Tax
lots were classified using the following criteria:
Category Criteria
Higher Redevelopment Potential Improvement to land value ratio <=0.3:1.0
Moderate Redevelopment Potential Building coverage <10% of total lot area
and improvement value <=0.3:1.0
Lower Redevelopment Potential Building coverage <20% of total lot area
and improvement value >=0.3:1.0 and
<=0.5:1.0
The criteria above were used in combination with employment data to
identify a reasonable threshold assumption to use for redevelopment.
Table 2-9 shows the results of applying the criteria above. To better
understand the implications on pre-existing employment, ECO associated
the number of employees associated with each category. The results show
a distribution that suggests lands in the higher and moderate categories
account for a relatively small percentage of total employment in
Springfield (about 3.5%). The lower potential category includes 19% of the
city’s employment.
Attachment 1-37
Page 22 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table 2-9. Tax lots by Redevelopment Potential categories
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Table 2-9 shows all redevelopment potential categories; lands in the lower potential category are not
included as part of the redevelopable land inventory as explained below.
Because the improvement to land value ratio is a gross indicator, it is
reasonable to assume that not all of parcels that meet this criterion for
redevelopment potential will be assumed to redevelop during the planning
period.
The data show that the lower potential criteria (building coverage <20% of
total lot area and improvement value >=0.3:1.0 and <=0.5:1.0) includes
28% of the City’s total employment land base and more than 20% of
covered employment in 2006. The significant amount of land and
employment in this category suggests limited redevelopment potential
(from a land capacity perspective, redevelopment only happens when an
existing use is replaced by a use that has more employment). Thus, the
lower potential category is not included as part of the redevelopable base.
Excluding the lower category leaves 588 unconstrained acres that are
potentially redevelopable. This represents the redevelopable land base that is
used for the purpose of this study.
Table 2-10 shows potentially redevelopable land by plan designation and
by parcel size.8 This analysis is useful in that it shows the distribution of
potentially redevelopable land by parcel size, which allows an evaluation
of whether a sufficient mix of parcel sizes is available. The distribution of
buildable land by parcel size varies by plan designation, with the results
showing the City has very few vacant tax lots (1) over 20 acres with
redevelopment potential.
8 The table shows total acres in vacant tax lots (constraints are not netted out)
Category Total Acres
Unconstrained
Acres
% of Land
Base
Employ-
ment (2006)
Higher Potential 352 352 10% 478
Moderate Potential 304 236 9% 833
Lower Potential 947 947 28% 7,107
Total 1,603 1,535 47% 8,418
Attachment 1-38
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 23
Table 2-10. Buildable acres in potentially redevelopable tax lots by plan designation
and parcel size, Springfield UGB, 2008
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Buildable acres includes “constrained” acres and “unconstrained” acres
Note: Acres may not sum to tenths due to rounding errors.
Plan Designation <0.25 0.25-0.49 0.50-0.99 1.00-1.99 2.00-4.99 5.00-9.99
10.00-
19.99
20.00-
50.00 50+ Total
Total Acres
Industrial
Campus Industrial 0.2 0.5 1.9 3.4 5.0 0.0 0.0 0.0 0.0 11.0
Light Medium Industrial 3.9 10.0 10.6 12.4 36.3 19.4 0.0 0.0 0.0 92.7
Heavy Industrial 1.4 2.8 9.7 24.5 53.7 32.7 22.4 0.0 89.5 236.7
Special Heavy Industrial 0.0 0.0 0.0 1.7 0.0 0.0 12.4 63.2 0.0 77.4
Subtotal 5.5 13.3 22.2 42.0 95.0 52.1 34.9 63.2 89.5 417.7
Commercial
Commercial 7.6 13.7 21.8 12.7 22.6 0.0 0.0 0.0 0.0 78.4
Community Commercial 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0
Major Retail Center 1.51.80.90.00.00.00.00.00.04.3
Subtotal 9.1 15.5 22.8 12.7 22.6 0.0 0.0 0.0 0.0 82.7
Mixed Use
Commercial Mixed Use 9.6 7.8 14.3 10.0 8.9 0.0 0.0 0.0 0.0 50.6
Light Medium Industrial Mixed Use 0.1 0.3 0.7 0.0 0.0 0.0 0.0 0.0 0.0 1.1
Medium Density Res Mixed 0.4 0.3 2.5 1.2 9.2 0.0 0.0 0.0 0.0 13.5
Mixed Use 1.5 2.2 2.8 3.8 12.4 0.0 0.0 0.0 0.0 22.7
Subtotal 11.6 10.5 20.2 15.0 30.5 0.0 0.0 0.0 87.9
Total 26.2 39.4 65.2 69.7 148.1 52.1 34.9 63.2 89.5 588.2
Number of Tax Lots
Industrial
Campus Industrial 1122200008
Light Medium Industrial 38 26 14 9 13 3 0 0 0 103
Heavy Industrial 22 6 12 16 16 5 2 0 1 80
Special Heavy Industrial 0001001204
Subtotal 61 33 28 28 31 8 3 2 1 195
Commercial
Commercial 70 37 31 9 6 0 0 0 0 153
Community Commercial
Major Retail Center 176100000024
Subtotal 87 43 32 9 6 0 177
Mixed Use
Commercial Mixed Use 692221730000122
Light Medium Industrial Mixed Use 1 1 1 0 0 0 0 0 0 3
Medium Density Res Mixed 2131200009
Mixed Use 117434000029
Subtotal 83 31 29 11 9 0 0 0 163
Total 2311078948468321535
Lot Size (Buildable Acres)
Attachment 1-39
A MAIN
Q
BI-5D
I-105
JASPER5TH28TH MARCOLA42NDCAMP
C
R
E
E
K
E
THURSTONG
CENTENNIAL
MILL
7TH2ND58TH21STOLYMPIC
10TH69THMCKENZIE
HARLOWGATEWAY
32NDMCVAY31STBELTLINE
70TH67THDAISY14TH19TH 66TH30THASPENFRANKLIN36THHWY
5
8 48TH35THFAIRVIEW
HAYDEN BRIDGE
YOLANDA
57THLAURAPIONEER
PARKWAY
EAST52ND18THHIGH BANKS
HW
Y
9
9
S
COMMERCIAL
INTERNATIONAL
GONYEARAINBOWI-
5
O
N
R
AM
PGARDEN
PARKWAYGAME FARM
PRIVA
T
E
BOB STRAUB
MENLOOLD COBURGBRACKENFERNI-
5
A
30THPRIVATE DAISY
G
G
A
M
E
F
A
R
M
E
MAIN
JASPERGAME FARMCity of SpringfieldO r e g o n
Map 2-6Potentially RedevelopableCommercial and Industrial Land
ECONorthwest, July 2009
0 2,400 4,8001,200 Feet¯
City Limits
Urban Growth Boundary
Legend
Tax Lots
Plan Designation
Campus Industrial
Commercial
Commercial Mixed Use
Heavy Industrial
LIGHT MED IND MIXED USE
Light Medium Industrial
Major Retail Center
Medium Density Res Mixed
Special Heavy Industrial
Mixed Use
Note: Redevelopment potential uses the Mediumrange assumptions recommended by the TAC and includes lots that meet the following criteria:
Improvement to Land Value Ratio <=0.3
OR
Building Coverage <10%
Attachment 1-40
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 25
SHORT-TERM LAND SUPPLY
This section evaluates the short-term supply of land in the Springfield
portion of the Metropolitan UGB. It begins with an overview of the policy
context that requires this analysis, and then evaluates the short-term land
supply.
POLICY CONTEXT
The Goal 9 Administrative Rule (OAR 660-009) includes provisions that
require certain cities to ensure an adequate short-term supply of industrial
and other employment lands. OAR 660-009-005(10) defines short term
supply as follows:
“…means suitable land that is ready for construction within one
year of an application for a building permit or request for service
extension. Engineering feasibility is sufficient to qualify land for
the short-term supply of land. Funding availability is not
required. "Competitive Short-term Supply" means the short-term
supply of land provides a range of site sizes and locations to
accommodate the market needs of a variety of industrial and
other employment uses.”
The Goal 9 rule also requires cities in a Metropolitan Planning
Organization (MPO, which includes Springfield) to make a commitment
to provide a competitive short-term supply of land and establishes targets
for the short-term supply of land. Specifically, OAR 660-009-0020(1)(b)
states:
“Cities and counties within a Metropolitan Planning Organization
must adopt a policy stating that a competitive short-term supply
of land as a community economic development objective for the
industrial and other employment uses selected through the
economic opportunities analysis pursuant to OAR 660-009-0015.”
The rule goes on to clarify short-term land supply targets for cities in an
MPO (OAR 660-009-0025):
(3) Short-Term Supply of Land. Plans for cities and counties
within a Metropolitan Planning Organization or cities and
counties that adopt policies relating to the short-term supply of
land must designate suitable land to respond to economic
development opportunities as they arise. Cities and counties may
maintain the short-term supply of land according to the strategies
adopted pursuant to OAR 660-009-0020(2).
(a) Except as provided for in subsections (b) and (c), cities and
counties subject to this section must provide at least 25 percent of
Attachment 1-41
Page 26 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
the total land supply within the urban growth boundary
designated for industrial and other employment uses as short-
term supply.
(b) Affected cities and counties that are unable to achieve the
target in subsection (a) above may set an alternative target based
on their economic opportunities analysis.
(c) A planning area with 10 percent or more of the total land
supply enrolled in Oregon's industrial site certification program
pursuant to ORS 284.565 satisfies the requirements of this section.
In summary, the rule requires Springfield to assess the short-term supply
of land based on the criteria that land can be ready for construction within
one year. The determination is based on “engineering feasibility.”
ANALYSIS OF SHORT-TERM SUPPLY OF LAND
The short-term supply analysis includes all lands within the Springfield
portion of the Metropolitan UGB. To analyze the short term supply of
land available for industrial and other employment uses, ECO worked
closely with staff from the Springfield Public Works and Development
Services Departments. A number of service issues were identified through
this process that affects many different sites within the city. Identified
deficiencies spanned the range of services, including water, wastewater,
stormwater and transportation.
Despite the issues staff identified, all areas within the Springfield UGB can
be considered to technically meet the Goal 9 Rule criteria of “engineering
feasibility.” Staff identified few areas where it was not possible to extend
services within one year—provided that funding is available. Funding is a
much broader and more complicated issue, but falls outside of the Goal 9
rule as written.
The analysis did identify the Jasper-Natron area as unlikely to meet the
short-term supply criteria. This is due to a combination of wetlands that
make drainage an issue as well as the distance from existing water and
sewer trunk lines (more than one mile from the nearest 18” sewer line to
the north end of the site).
Table 2-11 summarizes the number of vacant and potentially
redevelopable acres in the short-term land supply. The results indicate
that 91% of the vacant commercial and industrial land is considered
available as short-term supply, and 85% of land with redevelopment
potential is available as short-term supply. Buildable land in the Jasper-
Natron area is not considered part of the short-term land supply. The
Attachment 1-42
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 27
Jasper-Natron area is the only area of the city with employment lands that
are not considered part of the short term supply.
Table 2-11. Short-term land supply
Source: City of Springfield GIS data; analysis by ECONorthwest
Note: Acres may not sum to tenths due to rounding errors.
Category/Plan
Designation
Buildable
Acres
Acres in
Short-Term
Supply
Percent in
Short Term
Supply
Vacant
Commercial 54.1 45.5 84%
Industrial 254.8 231.5 91%
Mixed Use 45.6 45.6 100%
Subtotal 354.5 322.7 91%
Potentially Redevelopable
Commercial 80.7 80.7 100%
Industrial 412.2 325.6 79%
Mixed Use 87.9 87.9 100%
Subtotal 580.9 494.2 85%
Attachment 1-43
Attachment 1-44
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 29
Economic Trends and Factors
Affecting Future Economic
Chapter 3 Growth in Springfield
Springfield exists as part of the larger economy of the southern Willamette
Valley and is strongly influenced by regional economic conditions. For
many factors, such as labor, Springfield does not differ significantly from
the broader region. For other factors, such as income, it does. Thus,
Springfield benefits from being a part of the larger regional economy and
plays a specific role in the regional economy.
This chapter summarizes national, state, county, and local trends and
other factors affecting economic growth in Springfield. Each heading in
this chapter represents a key trend or economic factor that will affect
Springfield’s economy and economic development potential. A more
detailed analysis of economic trends and factors affecting Springfield’s
future economic growth is presented in Appendices A and B.
AVAILABILITY OF LABOR
The availability of trained workers in Springfield will impact development
of Springfield’s economy over the planning period. Based on the analysis
in this section, the key trends that will affect the workforce in Springfield
over the next 20-years include Springfield’s growing population, aging
population, relatively low income, and commuting trends.
GROWING POPULATION
Population growth in Oregon tends to follow economic cycles.
Historically, Oregon’s economy is more cyclical than the nation’s, growing
faster than the national economy during expansions, and contracting more
rapidly than the nation during recessions.
Table 3-1 shows population growth in the U.S., Oregon, the Willamette
Valley, Lane County, Eugene, and Springfield for the 1990 to 2007 period.
Lane County grew slower than the State average between 1990 and 2007,
growing at 1.1% annually and adding more than 60,000 people. More than
60% of the County’s population lived in the Eugene-Springfield area in
2007, with about 17% of the County’s population in the Springfield city
limits. Springfield’s population grew faster than the County average, at
1.5% annually, adding 12,637 residents over the seventeen-year period.
Attachment 1-45
Page 30 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table 3-1. Population in the U.S., Oregon, the Willamette Valley, Lane
County, Springfield, and Eugene, 1990-2007
Source: U.S. Census, the Population Research Center at Portland State University.
Notes: Benton, Clackamas, Lane, Linn, Marion, Multnomah, Polk, Washington, and Yamhill Counties represent
the Willamette Valley Region. Figures for Springfield and Eugene are for areas inside their respective city limits.
Migration is the largest component of population growth in Oregon.
Between 1990 and 2007, in-migration accounted for 70% of Oregon’s
population growth. Over the same period, in-migration accounted for
74% of population growth in Lane County, adding nearly 44,500 residents
over the seventeen-year period.
AGING POPULATION
The number of people age 65 and older in the U. S. is expected to double
by 2050, while the number of people under age 65 will only grow by 12%.
The economic effects of this demographic change include a slowing of the
growth of the labor force, need for workers to replace retirees, aging of the
workforce for seniors that continue working after age 65, an increase in
the demand for healthcare services, and an increase in the percent of the
federal budget dedicated to Social Security and Medicare.9
The average age of Springfield residents is increasing. According to the US
Census, Springfield’s average age was 32 in 2000, 30 in 1990, and 26 in
1980. Table 3-2 shows the change in age distribution for Springfield
between 2000 and 2008. The age group that increased the most was people
aged 45 to 64, which grew by 2,540 people (24%). This age group’s
proportion of the total population increased from 20% to 23% during this
time period. The largest percentage decrease was in people aged 18 to 24,
which shrunk by 913 people (16%).
9 The Board of Trustees, Federal Old-Age and Survivors Insurance and Federal Disability Insurance Trust Funds, 2008, The
2008 Annual Report of the Board of Trustees of the Federal Old-Age and Survivors Insurance and Federal Disability Insurance Trust
Funds, April 10, 2008. The Budget and Economic Outlook: Fiscal Years 2007 to 2016, January; and Congressional Budget Office,
2005, The Long-Term Budget Outlook, December.
Area 1990 2000 2007 Number Percent AAGR
U.S.248,709,873 281,421,906 301,621,157 52,911,284 21% 1.1%
Oregon 2,842,321 3,421,399 3,745,455 903,134 32% 1.6%
Willamette Valley 1,962,816 2,380,606 2,602,790 639,974 33% 1.7%
Lane County 282,912 322,959 343,140 60,228 21% 1.1%
Springfield 44,683 52,864 57,320 12,637 28% 1.5%
Eugene 112,669 137,893 153,690 41,021 36% 1.8%
Change 1990 to 2007Population
Attachment 1-46
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 31
Table 3-2. Change in age distribution, Springfield, 2000-2008
Source: U.S. Census 2000 and Claritas 2008
Note: Percent change over the 2000 to 2008 period is based on the growth in the age group divided by the
number of people in the age group in 2000. For example, people 5 to 17 years old had a 4% percent change,
which was calculated using the following calculation: 408/10,069 = 4%.
Note: Share refers to the change in the percent of an age group between 2000 and 2008. For example, the
share of people 18 to 24 years old decreased from 11% to 9%, a decrease of 2.3%.
Note: Percentages may not add to 100% as a result of rounding errors.
Springfield’s population was younger than the County or State averages
in 2008. Figure 3-1 shows the age structure for Oregon, Lane County,
Eugene, and Springfield in 2008. Springfield had a greater proportion of
its population under 44 years of age (66%) than Eugene (62%), Lane
County (58%), or Oregon (60%). Springfield also had a smaller share of
population aged 55 and older, 21% of Springfield’s population, compared
to 24% in Eugene, 27% in the County, 26% in the State.
Age Group Number Percent Number Percent Number Percent Share
Under 5 4,327 8% 4,121 7% -206 -5% -0.8%
5-17 10,069 19% 10,477 19% 408 4% -0.3%
18-24 5,890 11% 4,977 9% -913 -16% -2.3%
25-44 16,609 31% 17,372 31% 763 5% -0.4%
45-64 10,546 20% 13,086 23% 2,540 24% 3.4%
65 and over 5,423 10% 5,983 11% 560 10% 0.4%
Total 52,864 100% 56,016 100% 3,152 6% 0.0%
2000 2008 Change 2000 to 2008
Attachment 1-47
Page 32 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Figure 3-1. Population by age, Oregon, Lane County,
Eugene, and Springfield, 2008
Source: Claritas 2008, percentages calculated by ECONorthwest.
INCOME
Over the last twenty-four years, income in Oregon has been below
national averages and income in Lane County has been below state
averages. There are four basic reasons that income has been lower in
Oregon and Lane County than in the U.S.: (1) wages for similar jobs are
lower; (2) the occupational mix of employment is weighted towards lower
paying occupations; (3) a higher proportion of the population has transfer
payments (e.g. social security payments for retirees), which are typically
lower than earnings; and (4) lower labor force participation among
working age residents. To a certain degree, these factors are all true for
Oregon and Lane County. The combination of these factors results in
lower income for Oregon and Lane County.
In addition, wages in Lane County and Oregon tend to be more volatile
than the national average. The major reason for this volatility is that the
relative lack of diversity in the State and County economy. Wages in
Oregon and Lane County are impacted more than the national average by
downturns in either the national economy or in industries in Oregon that
0%5%10% 15% 20%
Under 10
10-17
18-24
25-34
35-44
45-54
55-64
65 and over
AgePercent of Population
Oregon Lane County Springfield Eugene
Attachment 1-48
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 33
are dependent on natural resources (e.g., timber and wood processing or
R.V. manufacturing).
Lane County’s median household income in 2006 was $42,127, compared
with $46,230 for Oregon and the national average of $48,451. Figure 3-2
shows the distribution of household income in Oregon, Lane County,
Eugene, and Springfield in 2008. Figure 3-2 shows that a larger share of
households in Springfield (32%) had an income of $25,000 or less,
compared to Lane County (27%) or the State (23%). Springfield also has a
lower share of households with income above $75,000 (17%), compared to
Eugene (23%), the County (23%), or the State (27%).
Figure 3-2. Distribution of household income of U.S., Oregon,
and Lane County, 2008
Source: Claritas 2008
The low average income in Lane County and Springfield, relative to
Oregon and the U.S., make Springfield attractive to some firms
considering moving within the U.S. Firms continue to outsource back-
office functions, such as call centers or administrative functions, within
the U.S. Lane County’s relatively low labor costs and the availability of
trained workers make Lane County attractive to firms considering
relocating back-office functions.
0% 5% 10% 15% 20% 25% 30% 35%
Less than $25,000
$25,000 - $49,999
$50,000 - $74,999
$75,000 - $99,999
$100,000 -
$150,000
Greater than
$150,000
Household IncomePercent of Households
Oregon Lane County Springfield Eugene
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EDUCATIONAL ATTAINMENT
The availability of trained, educated workers affects the quality of labor in
a community. Educational attainment is an important labor force factor
because firms need to be able to find educated workers. In 2007, 26% of
Springfield’s residents had an associate’s degree or higher, compared to
the County average of 37% and Eugene’s average of 47% of residents with
an associate’s degree or higher. Firms locating in Springfield will be able
to attract employees from within Springfield and across the Eugene-
Springfield region.
WORKFORCE PARTICIPATION
The current labor force participation rate is an important consideration in
the availability of labor. The labor force in any market consists of the adult
population (16 and over) who are working or actively seeking work. The
labor force includes both the employed and unemployed. Children,
retirees, students, and people who are not actively seeking work are not
considered part of the labor force.
In 2007, Springfield’s labor participation rate was 67% of their over-16
population of over 43,000. Of their 67% in the labor force, 10% were
unemployed. In comparison, Lane County had 63% labor force
participation, 8% of whom were unemployed. Labor force participation
rates have dropped by about 1% since 2000, when Springfield’s labor
participation rate was 68%, compared to the State average of 64%.
COMMUTING PATTERNS
Commuting plays an important role in Springfield’s economy. Springfield
residents generally have a shorter commute than residents of Lane County
or Oregon. Eighty percent of Springfield residents commute 29 minutes or
less, compared to 77% of Lane County residents and 69% of Oregonians.
Residents of Springfield are less likely to have a long commute, with 7% of
Springfield’s residents commuting 45 minutes or more, compared to 10%
of Oregonians.
The majority of Springfield’s workforce (79%) lives in Lane County, with
29% in Springfield and 23% in Eugene. The majority of Springfield
residents (81%) work in Lane County, with 25% working in Springfield
and 40% working in Eugene.
The implication of this data is that most people living or working in
Springfield commute within the Eugene-Springfield area. This commuting
pattern gives Springfield firms access to the workforce within the Eugene-
Springfield region. Even though commutes in Springfield are generally
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 35
shorter than the State average, these commuting patterns create demand
for automotive and other forms of transportation, both within Springfield
and on roads throughout the Eugene-Springfield region.
Increasing energy prices may impact commuting patterns within the
Eugene-Springfield area. The impact is most likely to be greatest for
residents living in the smaller cities around the Eugene-Springfield area
(e.g., Veneta or Oakridge) because the commute to Springfield is longer
from these outlying cities. Willingness to commute by most workers living
and working within Eugene and Springfield is likely to have relatively
little impact from fuel prices, unless prices increase dramatically.
CHANGES IN EMPLOYMENT
The economy of the nation changed in the 1980 to 2006 period. These
changes affected the composition of Oregon’s economy, including Lane
County and Springfield. The most important shift during this period at
the national-level was the shift in employment from a focus on
manufacturing to services. The most important shift in Oregon, including
Lane County and Springfield, has been the shift from a timber-based
economy to a more diverse economy, with the greatest employment in
services. The most important trends and changes in employment for
Springfield over the next 20-years are: shifts in employment, growing
importance of health care, continued importance of manufacturing, and
outlook for growth in Springfield.
SHIFTS IN EMPLOYMENT
Over the past few decades, employment in the U.S. has shifted from
manufacturing and resource-intensive industries to service-oriented
sectors of the economy. Increased worker productivity and the
international outsourcing of routine tasks have lead to declines in
employment in the major goods-producing industries.
In the 1970s Oregon started to transition away from reliance on traditional
resource-extraction industries. An important indicator of this transition is
the shift within Oregon’s manufacturing sector, with a decline in the level
of employment in the Lumber & Wood Products industry10 and concurrent
growth of employment in high-technology manufacturing industries
(Industrial Machinery, Electronic Equipment, and Instruments11).
10 Lumber and Wood Products manufacturing is in Standard Industrial Classification (SIC) 24
11 SIC 35, 36, 38
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As Oregon has transitioned away from natural resource-based industries,
the composition of Oregon’s employment has shifted from natural
resource based manufacturing and other industries to service industries.
The share of Oregon’s total employment in Service industries increased
from its 1970s average of 19% to 30% in 2000, while employment in
Manufacturing declined from an average of 18% of total employment in
the 1970s to an average of 12% in 2000.
The changes in employment in Lane County have followed similar trends
as changes in national and state employment. Between 1980 and 2006,
Lane County added more than 53,000 jobs. The sectors with the greatest
change in share of employment were Services and Retail Trade, adding
more than 38,500 or 73% of new jobs. Over the 26-year period,
manufacturing added more than 4,000 jobs (8% of new jobs), with the
greatest growth in: Transportation Equipment manufacturing (R.V.
manufacturing), Computer and Electronics manufacturing, and
Machinery manufacturing.
Some industries in the region’s employment base have volatile
employment cycles. These industries typically have boom and bust cycles,
which result cycles of hiring and layoffs. The lumber and wood products
industry is tied to national housing market cycles, with decreased
productivity and employment in slow housing markets. The RV
manufacturing industry is tied to broader national economic trends and
energy price changes. Finally, the region’s high-tech companies are subject
to market trends in the high-tech industry, including changes in
production methods and consumer purchasing patterns. Two major high-
tech firms, Hynix and Sony, located in the Eugene-Springfield region and
closed their production facilities between the mid-1990’s and 2008.
The average pay per employee in Lane County in 2006 was $33,240. The
sectors with above average pay and high employment were: Construction,
Manufacturing, Government, and Health and Social Services. The sectors
with below average pay and high employment were: Retail,
Accommodations and Food Services, and Administration and Support
and Waste Management.
In 2006, Springfield had 27,310 jobs at 1,819 establishments, with an
average firm size of 15 employees. The sectors with the greatest
employees were: Retail (13%), Government (13%), Health Care and Social
Assistance (11%), and Manufacturing (10%). These sectors accounted for
17,863 or 65% of Springfield’s jobs.
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 37
OUTLOOK FOR GROWTH IN SPRINGFIELD
The State forecasts that employment will continue growing in Lane
County at 1.4% average annual growth, compared with the State average
of 1.3% average annual growth. The sectors that will lead employment
growth in Lane County for the ten-year period are: Health Care & Social
Assistance (adding 5,600 jobs), Government (adding 3,600 jobs),
Professional and Business Services (adding 3,000 jobs), Leisure &
Hospitality (adding 2,800 jobs), and Retail Trade (adding 2,400 jobs).
Together, these sectors are expected to add 17,400 new jobs or 76% of
employment growth in Lane County. Springfield has a high concentration
of employment in Health Care & Social Assistance, especially with the
relocation of PeaceHealth’s regional hospital to RiverBend. Springfield’s
concentration of employment in health care may further increase based on
where McKenzie-Willamette Medical Center relocates to and the size of
the new hospital.
One way to determine opportunities for economic development is to
determine the sectors with the greatest expected growth in the region
(based on the Oregon Employment Department’s forecast for employment
growth in Lane County between 2006 and 2016) and the greatest
concentration of existing employment in the community (based on a
comparison of employment data in Springfield and the State in 2006).
Sectors with high employment concentration in Springfield and high
growth forecasts are the industry’s most likely to grow. These sectors in
Springfield are: Health and Social Assistance; Administrative and Support
and Waste Management Services; Construction; and Accommodations
and Food Services.
Springfield may have opportunities for growth in other sectors that the
State forecasts will have high growth. Springfield, however, does not
currently have high concentrations in some of these sectors: Arts,
Entertainment, and Recreation; Management of Companies and
Enterprises; Professional, Scientific, and Technical Services; and Private
Educational Services.
It is unclear what long-term impact rising fuel and transportation costs
will have on Oregon’s economy, including Springfield. Globalization and
outsourcing of jobs, especially manufacturing jobs, has occurred since the
1980’s, changing the state’s economy. Globalization depends, in part, on
inexpensive transportation of materials and manufactured goods.
Businesses have relocated from areas with lower labor costs, in part,
because transportation costs were low.
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Increases in fuel prices have resulted in higher transportation costs,
decreasing the benefits of lower wages. It is possible that, if fuel and
transportation costs remain high and/or increase, companies may move
to be closer to suppliers or consumers. This effect occurs incrementally
over time and it is difficult to measure the impact in the short-term. If fuel
prices and transportation costs decrease over the planning period,
businesses may not make the decision to relocate (based on transportation
costs) because the benefits of being closer to suppliers and markets may
not exceed the costs of relocation.
REGIONAL BUSINESS ACTIVITY
GROWING IMPORTANCE OF HEALTHCARE
PeaceHealth has recently relocated its main hospital to the Gateway area
in Springfield. The RiverBend campus will have 2,500 PeaceHealth
employees by the end of 2008, in occupations including: physicians,
nurses, medical technicians, other medical staff, environmental services
staff, and food services staff. PeaceHealth started relocating
administrative and other staff to the RiverBend Annex in 2006 (located in
the former Sony disc manufacturing building), which has 700 employees.
The RiverBend campus will attract additional firms. For example, Oregon
Medical Labs, Oregon Imaging Center, and the Northwest Specialty
Clinics will have approximately 350 staff and physicians at the RiverBend
campus. The RiverBend Pavilion will have about 300 employees, at the
Oregon Medical Group, Oregon Imaging, and other medical businesses.
Employment in health care may also increase in Springfield, depending
on where McKenzie-Willamette Medical Center locates its new facility. If
the new facility is located in Springfield and if the facility is bigger and
employs more people than the existing hospital, Springfield will have
another major healthcare center as well as more healthcare employment.
CONTINUED IMPORTANCE OF MANUFACTURING
Manufacturing continues to be important to the economy in Springfield
and in Lane County. Manufacturing accounted for 14% of employment
(more than 20,000 jobs) in Lane County and 10% of employment (more
than 2,700 jobs) in Springfield in 2006. 12 Manufacturing industries
continue to offer jobs with above-average wages, making these jobs more
desirable.
12 Oregon Employment Department
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 39
Manufacturing grew slowly in Lane County between 1980 and 2006, at an
average annual rate of 0.3%, adding more than 4,000 jobs. The State
forecasts continued growth in manufacturing at the same rate over the
2006 to 2016 period.
Manufacturing is a traded sector industry, which brings revenue into
Oregon and Lane County from outside the State. The following
manufacturing industries accounted for two-thirds ($11 billion) of revenue
from exports in Oregon in 2007: Computer & Electronic Production,
Transportation Equipment, Machinery Manufacturers, Chemical
Manufacture, and Primary Metal Manufacturers.13 These industries are all
present in Lane County, accounting for 44% of manufacturing
employment in the County.
Continuing changes in the economy may impact manufacturing in Lane
County. For example, high energy prices may have been a factor in the
decrease of RV manufacturing in Lane County, which has resulted in the
layoff of employees beginning in 2006. In addition, the economic
downturn and consolidation of the paper manufacturing industry may
result in layoffs in firms that manufacture wood products and paper.
Although much of this employment is located outside of Springfield, it
affects residents of Springfield, either directly through job layoffs or
indirectly through decreases in economic activity.
TOURISM IN LANE COUNTY
Tourism brings economic activity into Lane County from outside sources.
Tourism expenditures in Lane County in 2006 grew 7.5%, to $553 million,
exceeding the statewide tourism growth rate for the year. Tourism
accounts for about 7,500 jobs in Lane County.
A major source of tourism spending is overnight accommodations. In
2008, the Eugene-Springfield Region had 3,118 total rooms. Occupancy
rates varied from 59% in fiscal year 2002 and 2003 to 72% in fiscal year
2006. Springfield levies a 9.5% transient lodging tax on overnight
accommodations. Between 2000 and 2008, Springfield’s lodging tax
revenue varied from $1.2 million in fiscal year 2004 to $1.6 million in fiscal
year 2007. Springfield’s transient lodging tax revenues accounted for
about one-quarter of total County lodging tax revenues.
13 “Economic Data Packet, Mary 2008,” Oregon Economic And Community Development Department
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SIGNIFICANCE OF AGRICULTURE IN LANE COUNTY
Agriculture continues to be important in Lane County’s economy. In 2002,
Lane County had approximately $88 million in total gross sales from
agriculture. The top five agricultural products in Lane County in 2002
were: Nursery and greenhouse ($21 million); milk and dairy ($10.3
million): cattle and calves ($7.6 million), fruits, tree nuts, and berries ($6.7
million); and vegetables, melons, potatoes, and sweet potatoes ($5.6
million).
While agriculture is an important source of economic activity in Lane
County, Springfield has relatively little agricultural employment within
the UGB. In 2006, about 1% of Springfield’s covered employment (282
employees) were employed in the Agriculture, Forestry, Fishing, and
Mining sectors. About half of these jobs (136 employees) were in Forestry
and Logging. Consistent with statewide land use policy, land within the
Springfield UGB is committed for future urban uses, rather than
agricultural uses.
SPRINGFIELD’S COMPARATIVE ADVANTAGES
Economic development opportunities in Springfield will be affected by
local conditions as well as the national and state economic conditions
addressed above and described in Appendix A. Factors affecting future
economic development in the Springfield include its location, availability
of transportation facilities and other public facilities, quality and
availability of labor, and quality of life. Economic conditions in
Springfield relative to these conditions in other portions of the Lane
County and southern Oregon form Springfield’s comparative advantage
for economic development. Springfield’s comparative advantages have
implications for the types of firms most likely to locate and expand in
Springfield.
There is little that Springfield can do to influence national and state
conditions that affect economic development. Springfield can influence
local factors that affect economic development. Springfield’s primary
comparative advantages are its location on I-5, proximity to Eugene,
access to skilled labor and cost of labor, and high quality of life. These
factors make Springfield attractive to residents and businesses that want a
high quality of life where they live and work.
The local factors that form Springfield’s comparative advantage are
summarized below and described in detail in Appendix B.
• Location. Springfield is located in the Southern Willamette
Valley, next to Eugene, between the Willamette River (to the
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 41
south) and McKenzie River (to the north). Interstate 5 runs to
the west of Springfield and Highway 126 runs east-west
through Springfield.
Springfield’s location, access to I-5 and Highway 126, and
proximity to Eugene are primary comparative advantages for
economic development in Springfield. These factors make
Springfield attractive to businesses, especially those wanting to
locate in the Willamette Valley.
• Buying Power of Markets. The buying power of Springfield
and the Eugene-Springfield area forms part of Springfield’s
comparative advantage by providing a market for goods and
services. According to estimates on household spending by
Claritas, households in Springfield are expected to spend about
$937 million in 2008, about 14% of total household expenditures
in the Eugene-Springfield Region. Springfield households spend
an average of $42,700 on commonly purchased items, not
including housing, Springfield’s households spent less than the
regional and nation averages, with about 91% of the $47,000
average expenditures for all households in the Eugene-
Springfield MSA and 84% of national average household
expenditures (Claritas, 2008).
The buying power of households in the Eugene-Springfield
region provides Springfield with a comparative advantage.
Access to households in the Eugene-Springfield Region
provides businesses in Springfield with greater sales potential
than other, smaller cities in the Southern Willamette Valley. As
the population in Springfield (and the Eugene-Springfield
region) grows, Springfield will need to provide more land for
firms that provide services to residents and businesses. The
majority of this land will be in areas of growth, such as in the
Mohawk area.
• Transportation. Businesses and residents in Springfield have
access to a variety of modes of transportation: automotive
(Interstate 5, multiple State highways, and local roads); rail
(Union Pacific and Amtrak); transit (LTD); and air (Eugene
Airport). Springfield has excellent automotive access for
commuting and freight movement. Springfield is located along
Interstate 5, the primary north-south transportation corridor on
the West Coast, linking Springfield to domestic markets in the
United States and international markets visa West Coast ports.
Springfield has developed along Highway 126, Highway 126 is
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the primary east-west highway in Lane County, running from
Florence to Redmond.
Other transportation options in Springfield include: multiple
Union Pacific rail lines provide freight service; transit service
from the Lane Transit District provides bus service within
Springfield and connects Springfield with Eugene; and the
Eugene Airport provides both passenger and freight service.
Springfield’s access to multiple modes of transportation
provides Springfield with advantages in attracting businesses
that need easy access to I-5 for automotive or some types of
freight movement. Springfield may have disadvantages in
attracting businesses that need large lots and easy access to I-5
(e.g., warehousing and transportation) because of the lack of
buildable industrial land along I-5 near Highway interchanges.
• Public Facilities and Services. Provision of public facilities and
services can impact a firm’s decision on location within a
region. Once a business has chosen to locate within a region,
they consider the factors that local governments can most
directly affect: tax rates, the cost and quality of public services,
and regulatory policies.
Springfield’s property tax rate ranges from $16.32 and $18.65
per $1,000 of assessed value, compared with a state average of
$15.20. The property tax rate in Eugene is more variable than
Springfield’s, ranging from $10.31 (possibly located in an area
outside of Eugene’s city limits) to $24.68 per $1,000 of assessed
value.14 Springfield’s property tax rates may provide the City
with little comparative advantage in attracting businesses,
relative to Eugene.
The City has sufficient water to meet expected residential and
employment needs. The local water provider, Springfield Utility
Board (SUB), is not concerned about its ability to supply water
to any type of industry, including water-intensive industries
like food processing. SUB has lower water rates than the
national average. The combination of available and lower cost
water may be an advantage to attracting some types of
businesses to Springfield.
14 Property tax rates for Springfield and Eugene are a composite of the rates for all properties with an address in Eugene or
Springfield. It is almost certain that some of these properties is located outside of both the Eugene and Springfield urban
growth boundaries and are subject to unincorporated Lane County tax rates.
Attachment 1-58
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 43
Based on discussions with staff at SUB, Springfield expects to be
able to meet demand for wastewater services resulting from
expected growth. The City expects to provide service to 6,100
new equivalent dwelling units, which includes residences and
businesses, over the next 20-years.
• Public Policy. Public policy can impact the amount and type of
economic growth in a community. The City can impact
economic growth through its policies about the provision of
land, redevelopment, and infill development. Success at
attracting or retaining firms may depend on availability of
attractive sites for development, especially large sites. For
example, Springfield was attractive as a location of
PeaceHealth’s new hospital because the City had a large,
relatively flat site located relatively near to Interstate 5 and
Beltline Highway.
Springfield’s decisionmakers articulated their support for
provision of employment land through the economic
development strategy and in other policy choices. Objectives in
the economic development strategy supporting the provision of
employment land include objectives to: (1) provide employment
land in a variety of locations, configurations, and site sizes for
industrial and other employment uses, (2) provide an adequate
competitive short-term supply of suitable land to respond to
economic development opportunities as they arise, (3) reserve
sites over 20-acres for special developments and industries that
require large sites, and (4) provide adequate infrastructure to
sites.
The economic development strategy also includes objectives
that support redevelopment of existing land within the UGB,
especially in Downtown and in Glenwood, and infill
development. In addition, the City is promoting redevelopment
in Downtown through the creation of the Urban Renewal
District in Downtown Springfield.
• Labor Market. The availability of labor is critical for economic
development. Availability of labor depends not only on the
number of workers available, but the quality, skills, and
experience of available workers as well.
Commuting is common in Springfield. About 40%of the people
who live in Springfield commute to Eugene for work. Less than
one-third of Springfield’s workers live in Springfield. The
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Page 44 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
implication of this workforce analysis is that, while only one-
third of Springfield’s workforce lives within the City,
Springfield are able to attract educated workers from most of
Eugene and surrounding areas in Lane County.
It does not appear that workforce will be a constraint on
employment growth in Springfield. Springfield should be able
to continue to draw on residents of Eugene for workers, even if
energy prices continue to rise but Springfield’s ability to attract
workers from outside of the Eugene-Springfield area may be
negatively impacted by continued increases in energy prices.
Opportunities for workforce training and post-secondary
education for residents of the Eugene-Springfield area include:
the University of Oregon, Lane Community College, Northwest
Christian College, and Gutenberg College.
Attachment 1-60
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 45
Land Demand and
Chapter 4 Site Needs in Springfield
OAR 660-009 requires cities to maintain a 20-year inventory of sites
designated for employment. To provide for at least a 20-year supply of
commercial and industrial sites consistent with local community
development objectives, Springfield needs an estimate of the amount of
commercial and industrial land that will be needed over the planning
period. Demand for commercial and industrial land will be driven by the
expansion and relocation of existing businesses and new businesses
locating in Springfield. The level of this business expansion activity can be
measured by employment growth in Springfield.
POTENTIAL GROWTH INDUSTRIES
An analysis of growth industries in Springfield should address two main
questions: (1) Which industries are most likely to be attracted to the
Eugene-Springfield area? and (2) Which industries best meet Springfield’s
economic objectives? The types of industries that Springfield wants to
attract have the following attributes: high-wage, stable jobs with benefits;
jobs requiring skilled and unskilled labor; employers in a range of
industries that will contribute to a diverse economy; and industries that
are compatible with Springfield’s community values.
KEY TRENDS AFFECTING EMPLOYMENT GROWTH
Previous chapters reviewed historical growth trends by industry in the
Eugene-Springfield Region and Lane County since 1980 and employment
in Springfield. A review of key historical trends in employment in the
Eugene-Springfield Region can help identify potential growth industries
in Springfield. In other words, economic opportunities in Springfield are a
function of regional historical trends and future economic shifts.
While nearly all sectors of the economy in the Region experienced growth
over this period, some sectors grew faster than others, resulting in a shift
in the distribution of employment by sector. Key historical trends include
in the 1980 to 2007 period include:
• A substantial increase in the share of employment in Services,
which increased from 23% to 42% of covered employment in Lane
County.
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Page 46 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
• A decrease in the share of employment in Retail Trade, from 21% to
13%. The number of jobs in retail did not decrease substantially
over the 27-year period ( a loss of nearly 550 retail jobs) but growth
in retail jobs lagged behind growth in other sectors, especially
service sectors.
• A decline in the share of employment in Manufacturing, which fell
from 20% to 13% of covered employment.
• A decline in the share of employment in Government, which
decreased from 20% to 16% of covered employment
Together, these sectors represent about 84% of employment in the County.
Other sectors of the County’s economy have a relatively stable and small
share of the County’s employment.
Historical employment trends show a substantial shift in the Region’s
economy that mirrored shifts in the State and national economies,
specifically the substantial growth in Services and decline of
Manufacturing. While these trends are expected to continue into the
future, future shifts are not expected to be as dramatic as those
experienced over the past twenty years. There are several reasons for this
expectation (e.g., that the future will be somewhat different that the past):
• Growth in the Services sector has matured and should track more
closely with overall employment and population growth rather
than continuing to gain a substantial share of total employment.
• The decline in Manufacturing was due, in part, to decreased timber
harvests and the outsourcing of production to facilities in countries
with lower costs. Timber harvests are expected to level off and
increase in the future as commercial forests that were replanted
since the 1970s grow to a harvestable size. While outsourcing will
continue, much of what can be outsourced has already gone.
Remaining Manufacturing firms are tied to their region to be near
supplies or markets, or manufacture specialized goods were small
production quantities, fast turn-around times, and the need for
quality limit the ability to outsource.
• The mix of Manufacturing jobs in the Eugene-Springfield Region
changed over the past twenty years with declines in Wood
Products and the growth of employment in Recreational Vehicle
(RV) manufacturing, machinery manufacturing, metals
manufacturing, and high-tech industries, such as Computer and
Electronics Manufacturing.
Attachment 1-62
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 47
BUSINESS CLUSTERS IN SPRINGFIELD
One way to assess the types of businesses that are likely to have future
growth in an area is to examine relative concentration and employment
growth of existing businesses. This method of analysis can help determine
relationships and linkages within in industries, also called industrial
clusters. Sectors that are highly concentrated (meaning there are more
than the “average” number of businesses in a sector in a given area) and
have had high employment growth are likely to be successful industrial
cluster. Sectors with either high concentration of businesses or high
employment group may be part of an emerging cluster, with potential for
future growth.
The sectors with the most growth potential (identified in Chapter 3) are:
Health and Social Assistance; Administrative and Support; Construction;
and Accommodations and Food Services. Other sectors with growth
opportunities are: Arts, Entertainment, and Recreation; Management of
Companies and Enterprises; Professional, Scientific, and Technical
Services; and Private Educational Services.
Table 4-1 shows existing and potential business clusters in Springfield.
The clusters identified in Table 4-1 are based on employment trends,
Springfield’s comparative advantages, the OED’s employment forecast for
Lane County, the types of firms that have considered locating in
Springfield, and analysis of existing and developing business clusters in
Springfield and Lane County.
Table 4-1. Existing and potential business clusters in Springfield
Cluster Employment Potential Secondary
Employment
Site Needs
Medical
Services
Associated with RiverBend:
3,400 new jobs in 2008
Additional medical
services
Additional services
Employment at a new
McKenzie-Willamette
Facility, if the Hospital
opens a new facility in
Springfield over the
planning period
Associated with RiverBend:
Medical Services and
Suppliers
Research and Education
Non-medical office space
Services like retail,
restaurants, financial
services, etc.
Small sites (2 acres or
less) on the RiverBend
Campus or in the
Gateway area
Small sites (2 acres or
less) distributed in
neighborhood or
community commercial
centers
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Page 48 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Cluster Employment Potential Secondary
Employment
Site Needs
Small Scale
Manufacturing
Growth potential depends
on firms choosing to locate
in Springfield.
Types of firms include:
• Organic food processing
• Cottage industries such
as jewelry, apparel, or
personal care products
• Plastics manufacturing
Manufacturing of related or
complementary products
Additional small scale
manufacturing
Sites on industrial land,
in business parks, or in
commercial areas. Site
sizes may range from
less than 1 acre to 10
acres.
Call Centers Growth potential depends
on firms choosing to locate
in Springfield. Eugene and
Springfield have advantages
for attracting call centers
because of the pool of
trained call center workers.
Back-office functions for
companies with call centers
Services like retail,
restaurants, financial
services, etc.
Space in commercial
buildings
Firms may need a
range of site sizes,
ranging from fewer
than 5 acres to about
20 acres. Some firms
may use existing office
space.
Back-Office
Functions
Growth potential depends
on firms choosing to locate
in Springfield. There is a lot
of national competition for
these functions.
Related back-office functions
(if a cluster grows)
Services like retail,
restaurants, financial
services, etc.
Space in commercial
buildings
Most firms are likely to
need sites of 5 acres or
smaller or use existing
office space
Tourism Growth potential depends
on holding events in the
Eugene-Springfield area
that attract visitors.
Growth may also depend on
development of
infrastructure to attract and
service visitors, such as
hotels or outdoor activities.
Services like hotels, retail,
restaurants, arts and
entertainment, etc.
Site needs range from
sites of less than 1
acre in existing
developments to larger
sites (5 acres or more)
for hotels
High-tech Growth potential depends
on firms growing locally or
choosing to locate in
Springfield.
Types of firms include:
• Software development
• Computer electronics
• Computer service
providers
• Data centers
Service and materials
providers
Services like retail,
restaurants, financial
services, etc.
Site needs range from
sites of 1 acre or less
in existing
developments to large
sites (50 acres or
more) for large existing
businesses or data
centers.
Wood
Products
Growth potential depends
on the international demand
for wood products. The
existing wood products and
paper manufacturing cluster
may be diminishing.
Services like retail,
restaurants, financial
services, etc.
Site needs range from
sites of 2 acres or less
to industrial sites of 20
acres or more
Attachment 1-64
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 49
Cluster Employment Potential Secondary
Employment
Site Needs
Biotech Growth potential depends
on firms choosing to locate
in Springfield. There is a lot
of national competition for
these firms.
Springfield has advantages
in attracting these firms
because of the University of
Oregon’s Biotech Program,
presence of Invitrogen, and
national growth in the
industry.
Related biotech firms
Suppliers or other
specialized service providers
Site needs range from
sites 1 acre or less to
large sites of 20 acres
or more.
TARGET INDUSTRIES
The characteristics of Springfield will affect the types of businesses most
likely to locate in Springfield. Springfield’s attributes that may attract
firms are: the City’s proximity to I-5, high quality of life, proximity to the
University of Oregon, the presence of the RiverBend campus, positive
business climate, availability of skilled and semi-skilled labor, and
proximity to indoor and outdoor recreational opportunities. The types of
businesses that may be attractive to Springfield include:
• Medical Services. The development of a medical cluster at
RiverBend presents an opportunity to attract medical firms,
medical research firms, and other professional services.
PeaceHealth is in the process of attracting these firms, through
development of a research-oriented relationship with OHSU and
the University of Oregon. The possible siting of a new facility for
McKenzie-Willamette Medical Center in Springfield presents
additional opportunities for attracting medical services and
employment in healthcare.
• Services for seniors. Springfield’s growing population of retirees
or near retirees, may attract or create demand for health services
that provide services to older people, such as assisted living
facilities or retirement centers. These facilities may prefer to locate
in relatively close proximity to RiverBend.
• Manufacturing. Springfield’s attributes may attract small scale
manufacturing firms (e.g., firms with fewer than 50 employees).
Springfield may also be attractive to large manufacturing firms,
provided that land is available for development. Examples of
manufacturing include medical equipment, high-tech electronics,
Attachment 1-65
Page 50 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
recreational equipment, furniture manufacturing, specialty apparel,
and other specialty manufacturing.
• Call Centers. The existing call center cluster may attract call centers
to Springfield. The potential for growth in call centers in the
Eugene-Springfield area will be dependent of the availability of
skilled labor.
• Back-Office Functions. Springfield’s high quality of life and
relatively low wages may attract back-office functions, such as the
Levi Strauss financial center in Eugene. Back-office functions
include administrative functions, such as accounting or information
technology. The potential for growth in back-office functions may
be limited by national competition for this type of employment.
Springfield may be more successful at attracting back-office
functions for firms that have a reason to locate in the Region, such
as firms with corporate headquarters on the West Coast or firms
that do a substantial amount of business in the Willamette Valley.
• Tourism. Visitors may be attracted to Springfield to take advantage
of recreational opportunities and other amenities. They may also be
attracted as a result of regional events, such as the Olympic Track
and Field trials, the Oregon Country Fair, or the University of
Oregon Bach Festival. Industries that serve tourists, such as food
services and accommodations, are likely to grow if tourism
increases.
• Specialty Food Processing. Springfield’s proximity to agricultural
resources may make the City attractive to specialty food processing
firms, such as those that specialize in organic or natural foods or
wineries.
• High-Tech. Springfield’s access to highly educated labor, access to
comparatively inexpensive electricity, and high quality of life may
make Springfield attractive to high-tech firms. The types of firms
that may be attracted to Springfield range from high-tech
manufacturing to data centers to software development.
• Professional and Technical Services. Springfield’s attributes make
it attractive to businesses that need access to educated workers and
want a high quality of life. These types of businesses could include
engineering, research, and other professional services that are
attracted to high-quality settings.
Attachment 1-66
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 51
Springfield’s reputation as a blue-collar community may present
challenges in attracting these types of businesses. Recent trends and
efforts by the City suggest the reputation as a blue-collar
community is in the process of changing. The City can facilitate this
change through building off of the medical cluster forming at
RiverBend and through promoting Springfield as a good place to
locate professional service firms.
• Green businesses. There is no clear definition of what constitutes a
green industry or business. In general, green businesses are those
that produce products or services that improve or maintain
environmental quality, as described in Appendix A. Opportunities
for environmentally conscious businesses are growing. The types of
green businesses that may choose to locate or expand in Springfield
includes: green construction firms (e.g., firms that use LEED-
certified building practices), organic food processing, sustainable
logging and/or lumber products manufacturing, or alternative
energy production (e.g., manufacturing solar panels or bio-fuels)
• Corporate Headquarters. Springfield’s quality of life, location
along I-5, and availability of educated workers may make
Springfield attractive as a place to locate corporate headquarters.
These same qualities, combined with the relatively low cost of
semi-skilled labor and cluster of call centers, make Springfield
attractive as a place to locate back-office functions, such as call
centers.
• Services for Residents. Population growth will drive development
of retail and government services, especially education, in
Springfield.
• Government and Public Services. Springfield will continue to be
the location for institutions such as: Springfield City Services, State
services such as the Department of Motor Vehicles and Oregon
Department of Transportation offices, the Springfield School
District, and the Springfield Utility Board.
EMPLOYMENT FORECAST
To provide for an adequate supply of commercial and industrial sites
consistent with plan policies, Springfield needs an estimate of the amount
of commercial and industrial land that will be needed over the planning
period. Goal 9 requires cities identify “the number of sites by type
reasonably expected to be needed to accommodate the expected
employment growth based on the site characteristics typical of expected
Attachment 1-67
Page 52 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
uses.” The number of needed sites is dependent on the site requirements
of employers. The estimate of land need is presented in the site needs
analysis in the next section.
Demand for commercial and industrial land will be driven by the
expansion and relocation of existing businesses and new businesses
locating in Springfield. The level of this business expansion activity can be
measured by employment growth in Springfield. This section presents a
projection of future employment levels in Springfield for the purpose of
estimating demand for commercial and industrial land.
Appendix C presents the process used to arrive at the employment
forecast for Springfield. Table 4-2 shows that employment is forecast to
grow by 13,440 employees (a 32% increase) between 2010 and 2030.
Table 4-2. Employment growth in
Springfield’s UGB, 2010–2040
Source: ECONorthwest
Springfield is part of the regional economic center in the Eugene-
Springfield region. The ratio of population to employment will decrease
from 1.6 people per job to 1.5 people per job between 2008 and 2030. This
change shows that employment will grow faster than population in
Springfield, suggesting that some Springfield will continue to have
employees who commute from Eugene or other cities in the region.
Table 4-3 shows the forecast of employment growth by building type in
Springfield’s UGB in 2030. In 2010, a total of about 60% of Springfield’s
Year
Total
Employment
2008 41,133
2010 42,284
2030 55,724
2030 55,724
2031 56,498
2032 57,283
2033 58,079
2034 58,886
2035 59,704
2036 60,534
2037 61,375
2038 62,228
2039 63,093
2040 63,970
Change 2010 to 2030
Employees 13,440
Percent 32%
AAGR 1.4%
Attachment 1-68
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 53
employment is in office and other services’ building types. About 18% is
in retail, 15% is in general industrial and 7% is in warehousing and
distribution.
Table 4-3. Forecast of employment growth in by building type,
Springfield UGB, 2010-2030
Source: ECONorthwest
Note: Green shading denotes an assumption by ECONorthwest
Note: The forecast assumes that the share of employment in other services’ building types will increase by
about 2.2% over the 20-year period. We expect that medical employment will grow faster than government
employment, based on historical trends that show government accounting for a decreasing share of
employment and the growing medical cluster in Springfield.
The forecast in Table 4-3 assumes that Springfield will have growth in all
categories of employment. It also assumes that the share of employment
will increase in other services (2.2% increase in share) and office (1.3%
increase in share). At the same time, the share of employment will
decrease in general industrial (1.8% decrease in share), warehousing and
distribution (1.0% decrease in share), and retail (0.7% decrease in share).
The rationale supporting these assumptions is presented in Appendix C.
SITE NEEDS
OAR 660-009-0015(2) requires the EOA identify the number of sites, by
type, reasonably expected to be needed for the 20-year planning period.
Types of needed sites are based on the site characteristics typical of
expected uses. The Goal 9 rule provides flexibility in how jurisdictions
conduct and organize this analysis. For example, site types can be
described by plan designation (i.e., heavy or light industrial), they can be
by general size categories that are defined locally (i.e., small, medium, or
large sites), or it can be industry or use-based (i.e., manufacturing sites or
distribution sites).
Firms wanting to expand or locate in Springfield will be looking for a
variety of site and building characteristics, depending on the industry and
specific circumstances. Previous research conducted by ECO has found
that while there are always specific criteria that are industry-dependent
Building Type Employment
% of
Total Employment
% of
Total
Industrial
Warehousing & Distribution 2,954 7.0% 3,343 6.0% 389
General Industrial 6,457 15.3% 7,523 13.5% 1,066
Commercial
Office 12,561 29.7% 17,274 31.0% 4,713
Retail 7,709 18.2% 9,752 17.5% 2,043
Other Services 12,603 29.8% 17,832 32.0% 5,229
Total 42,284 100.0% 55,724 100.0% 13,440
2010 2030 Change
2010 to
2030
Attachment 1-69
Page 54 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
and specific firm, many firms share at least a few common site criteria. In
general, all firms need sites that are relatively flat, free of natural or
regulatory constraints on development, with good transportation access
and adequate public services. The exact amount, quality, and relative
importance of these factors vary among different types of firms. This
section discusses the site requirements for firms in industries with growth
potential in the Eugene-Springfield Region, as indicated by the Oregon
Employment Department forecast (see Table A-12 in Appendix A for the
regional forecast).
Appendix C discusses the productive factors that affect business’
locational decisions and the implications of these factors for businesses
that may locate in Springfield. The appendix also discusses the
characteristics of sites needed to accommodate employment growth and
Springfield’s ability to provide sites with these characteristics.
LONG-TERM LAND AND SITE NEEDS
Appendix C presents the process for converting between the employment
forecast to site needs. Table 4-4 presents the estimate of needed sites by
site size and type of building. The results show that Springfield needs
approximately 371 sites. Most sites are small, 2-acres or less. Springfield
needs approximately 8 sites larger than 20-acres.
Table 4-4. Estimated needed sites by site size and building type,
Springfield, 2010 to 2030
Source: ECONorthwest
The identified site needs shown in Table 4-4 do not distinguish sites by
comprehensive plan designation. It is reasonable to assume that industrial
uses will primarily locate in industrial zones. Retail and service uses could
locate in commercial zones, mixed use zones, and residential zones.
SHORT-TERM SITE NEEDS
Springfield has four large-scale development plans currently underway:
RiverBend Node, Marcola Meadows Node, the Glenwood Riverfront
Node and the Downtown District Node. RiverBend, Marcola Meadows
Building Type
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50
Total
Sites
Warehousing &
Distribution 35 1 9
General Industrial 5 7 10 11 3 3 39
Office 100 20 20 5 1 146
Retail 70 15 10 4 99
Other Services 50 18 5 5 78
Total 225 60 48 30 5 3 371
Site Size (acres)
Attachment 1-70
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 55
and Glenwood Riverfront District have approved master plans and are
available for immediate development. In addition, the City is currently
developing a Downtown District Plan and Implementation Strategy to
facilitate and promote downtown redevelopment.
• RiverBend Node. PeaceHealth’s main hospital at RiverBend
opened in August 2008. The relocation or expansion of other
medical firms to the RiverBend campus is underway. In addition to
these uses, PeaceHealth plans further development of the
RiverBend campus, which is about 72 acres in size. Other uses may
include a mixture of residential development, office and
commercial support services, retail, and educational and research
functions to support collaborations with Oregon Health Services
University and the University of Oregon. Studies for the RiverBend
master plan indicated that there may be demand for additional
office development (400,000-500,000 square feet) and commercial
retail services (50,000 to 70,000 square feet).
• Marcola Meadows Node. Marcola Meadows is a proposed mixed-
use project located on a vacant 100-acre parcel in Springfield. The
project is expected to include about 190 single unit detached homes,
about 120 townhouses, about 120 homes in apartments, and 54
homes for senior living. The total proposed land requirement of the
residential villages would be 39 acres.
Marcola Meadows is also expected to have commercial
development, anchored by a Lowe’s Home Improvement store, and
including professional offices and retail. The commercial
development will occupy about 44 acres, have more than 409,000
square feet of built space, and require more than 1,200 parking
spaces. The remaining land in the development will be used for
common open space and streets.15
• Glenwood Node. Glenwood currently has a mixture of residential,
commercial, and industrial zoning, with areas that are
underdeveloped or undeveloped. Glenwood’s current
development pattern is: 83 acres of industrial land, 64 acres of
retail, 66 acres of manufactured dwellings, 37 acres of single-family
dwellings, and 167 acres of vacant land.
Redevelopment of Glenwood is in the planning stages. The 48 acre
Glenwood Riverfront Plan District is currently designated for
15 Marcola Meadows Pre Plan.
Attachment 1-71
Page 56 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Mixed Use Nodal Development and is available for development.
The City is currently updating the Glenwood Refinement Plan for
the rest of Glenwood. Goals for redevelopment include developing
residential, employment and mixed use areas, providing transition
between residential and industrial areas, and capitalizing on
Glenwood’s location between Eugene and Springfield and
riverfront land.16
16 Glenwood Refinement Plan. November 1999.
Attachment 1-72
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 57
Chapter 5 Land Capacity and Demand
This chapter provides a brief summary of the implications of the economic
opportunities needs analysis for the City of Springfield. This study looked
at economic trends and land needs from a regional and local perspective.
This chapter includes a general comparison of land supply and demand.
The comparison of land capacity and demand is followed by a discussion
of the key implications of the EOA for the City of Springfield.
COMPARISON OF LAND CAPACITY AND DEMAND
This section presents an analysis of land availability and capacity for
employment uses in Springfield. Chapter 4 presents an analysis of
potential growth industries in Springfield and the employment forecast
for Springfield. Based on this analysis, Table 5-1 shows a comparison of
land supply and need in terms of sites by site size. The results show that
Springfield has a deficit of about 6 industrial sites and 44 commercial and
mixed use sites.
Table 5-1. Comparison of vacant land supply and site needs, industrial and
other employment land, Springfield UGB, 2010-2010
Source: ECONorthwest.
Converting from the site needs shown in Table 5-1 to an estimate of land
needs requires making assumptions about average site sizes needed in
Springfield. Table 5-2 shows average site for needed sites in Springfield.
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50 Total
Buildable Land Inventory
Vacant
Industrial 72 24 20 12 0 0 128
Commercial and Mixed Use 104 14 6 4 0 0 128
Redevelopable
Industrial 122 28 31 5 1 0 187
Commercial and Mixed Use 305 20 15 0 0 0 340
Total Buildable Sites
Industrial 194 52 51 23 1 0 321
Commercial and Mixed Use 409 34 21 4 0 0 468
Site Needs
Needed sites
Industrial 5 7 13 16 4 3 48
Commercial and Mixed Use 220 53 35 14 1 0 323
Surplus (deficit) of sites
Industrial 189 45 38 7 (3) (3)273
Commercial and Mixed Use 189 (19) (14) (10) (1)0 145
Site Size (acres)
Attachment 1-73
Page 58 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table 5-2. Average size of needed sites, Springfield UGB
Source: ECONorthwest
Table 5-3 shows sites needed (from Table 5-1) and land need (based on
number of sites needed in Table 5-1 and average site size in Table 5-2). The
results show that Springfield has a deficit in the current UGB of the
following land types for the 2010 to 2030 period:
• Industrial land. Springfield has a need for 450 acres of industrial
land on six sites. Springfield has a need for three 50 acre sites, and
need for three 100 acre sites. In the context of this study, industrial
uses means any major employer that would be allowed in an
industrial land designation (e.g., campus industrial, light-medium
industrial, light-medium industrial mixed use, heavy industrial, or
special heavy industrial).
• Commercial sites. Springfield has a need for 261 acres of
commercial land on 44 sites. Springfield’s commercial site needs
range from sites 1 to 2 acres in size to one site that is 40 acres in
size.
Table 5-3. Comparison of employment land supply and site needs, Springfield
UGB, 2010-2030
Source: ECONorthwest
The summary of land needs in Table 5-3 shows Springfield’s land need for
all sites of all sizes. One of the City’s economic development strategies is
to encourage redevelopment, especially in Downtown and Glenwood.
Table 5-1 shows that Springfield concludes that 187 industrial sites and
340 commercial and mixed use sites would redevelop to address land
needs over the 20-year period. In addition to this assumption about
redevelopment, Springfield concludes that all land needs on sites smaller
than five acres would be accommodated through redevelopment. The City
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50
Industrial 0.5 1.5 3.0 15.0 50.0 100.0
Commercial and Mixed Use 0.3 1.5 3.0 15.0 40.0 50.0
Site Size (acres)
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50 Total
Industrial
Sites needed none none none none 3 3 6
Land need (acres)none none none none 150 300 450
Commercial and Mixed Use
Sites needed none 19 14 10 1 0 44
Land need (acres)none 29 42 150 40 0 261
Total sites needed none 19 14 10 4 3 50
Total acres needed none 29 42 150 190 300 711
Site Size (acres)
Attachment 1-74
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 59
had a deficit of 23 commercial and mixed use sites smaller than five acres,
which would require 71 acres of land (Table 5-3).
Table 5-4 shows Springfield’s employment land need, assuming that all
site needs for sites smaller than five acres would be addressed through
redevelopment. Springfield has the need for approximately six
industrial sites on 450 acres and eleven commercial and mixed use sites
on about 190 acres that cannot be accommodated within the existing UGB
over the 2010 to 2030 period.
Table 5-4. Employment site and land needs, Springfield UGB, 2010-
2030
Source: ECONorthwest
The data in Table 5-3 address employment needs on vacant and partially
vacant land. Some employment in Springfield will not require new land
but will locate on land that is currently used. ECO assumed that 24% of
employment (more than 3,200 new employees) would not require any
vacant land. This would include employment that will locate in residential
areas as well as employment that will locate on land that is already
classified as developed because employment uses in some built spaces
may intensify.
In addition, Springfield identified economic development strategies of
encouraging redevelopment in Downtown and Glenwood. ECO assumed
that all commercial and mixed use land needs on sites smaller than five
acres would be accommodated through commercial redevelopment. The
City had a deficit of 33 commercial and mixed use sites smaller than five
acres, which would require 71 acres of land (Table 5-3). Springfield
assumes this need will be accommodated through redevelopment of
existing commercial land.
CHARACTERISTICS OF NEEDED SITES
The Goal 9 Administrative Rule (OAR 660-009) requires that jurisdictions
describe the characteristics of needed sites (OAR 660-009-0025(1)). The
Less
than 5 5 to 20 20 to 50
Greater
than 50 Total
Industrial
Sites needed none none 3 3 6
Land need (acres)none none 150 300 450
Commercial and Mixed Use
Sites needed none 10 1 none 11
Land need (acres)none 150 40 none 190
Total sites needed none 10 4 3 17
Total acres needed none 150 190 300 640
Site Size (acres)
Attachment 1-75
Page 60 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Administrative Rule defines site characteristics as follows in OAR 660-009-
0005(11):
(11) "Site Characteristics" means the attributes of a site necessary for a
particular industrial or other employment use to operate. Site
characteristics include, but are not limited to, a minimum acreage or
site configuration including shape and topography, visibility, specific
types or levels of public facilities, services or energy infrastructure, or
proximity to a particular transportation or freight facility such as rail,
marine ports and airports, multimodal freight or transshipment
facilities, and major transportation routes.
The site needs analysis in Chapter 4 identified site needs in five types of
buildings: warehousing and distribution, general industrial, office, retail,
and other services. The characteristics of needed sites for each of these
building types are described below. All sites will need access to electricity,
phone, and high-speed telecommunications.
WAREHOUSING AND DISTRIBUTION
The site needs analysis (Table 4-4) identified a need for six sites larger
than five acres for warehousing and distribution. Based on the analysis of
land supply and site needs in Table 5-1, Springfield will need one site for
warehousing and distribution over the 2010-2030 period.17
• Site size. Springfield will need one site between 35 and 50 acres.
• Street access. Warehousing and distribution sites should be located
on an arterial street within ½ mile of an Interstate 5 interchange.
The freight traffic from the site should not be routed through
residential neighborhoods.
• Topography. Warehousing and distribution sites should be
relatively flat with slopes of 5% or less.
• Access to services. City services should be accessible to the site,
including sanitary sewer, and municipal water.
• Land ownership. Sites with a maximum of two owners to
minimize the cost and uncertainties of land assembly.
• Surrounding land uses. The warehousing and distribution site
should be abut compatible uses, such as industrial, business park or
commercial uses. The site should not abut urban residential, school
or park uses.
17 Table 5-1 shows that Springfield will need a total of six industrial sites larger than 20 acres over the 2010-2030 period. One of
these sites will be for warehousing and distribution and five will be for general industrial uses.
Attachment 1-76
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 61
GENERAL INDUSTRIAL
The site needs analysis (Table 4-4) identified a need for 17 sites larger than
five acres for general industrial uses. Based on the analysis of land supply
and site needs in Table 5-1, Springfield will need five sites 20 acres and
larger for general industrial over the 2010-2030 period.18 Industrial sites
may be used for one firm or may be used for an industrial park, to provide
space for multiple, smaller firms.
• Site size. Springfield will need five sites larger than 20 acres for
general industrial use.
o Springfield will need two sites of approximately 35 to 50
acres each.
o Springfield will need two sites in the 80-120 acre range and
one sites in the 150-250 acre range.
• Street access. Industrial sites should be located on an arterial street
that provides access to an Interstate 5 or highway 126 interchange.
Sites should be no more than one mile from an interchange. The
freight traffic from industrial sites should not be routed through
residential neighborhoods.
• Rail access. Some industrial uses may benefit from rail access,
especially businesses that ship bulky, inexpensive items over long
distances. Access to a rail line, or the possibility of developing a rail
spur, is an advantage for some businesses.
• Topography. Industrial sites should be relatively flat with slopes of
not more than 10% slope.
• Access to services. City services should be accessible to the site,
including sanitary sewer, and municipal water during the 20-year
planning period.
• Land ownership. Sites with a single owner are strongly preferred,
to reduce the cost of land assembly.
• Surrounding land uses. General industrial sites should abut
compatible uses, such as other industrial uses, warehousing and
distribution, business parks or commercial uses. The site should not
abut urban residential, school or park uses.
18 Table 5-1 shows that Springfield will need a total of six industrial sites larger than 20 acres over the 2010-2030 period. One of
these sites will be for warehousing and distribution and five will be for general industrial uses.
Attachment 1-77
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OFFICE
The site needs analysis (Table 4-4) identified a need for six sites larger
than five acres for office uses. Based on the analysis of land supply and
site needs in Table 5-1, Springfield will need six sites 20 acres and larger
for office over the 2010-2030 period. These larger office sites could have a
variety of development types: a campus site for a large business, a
business park, a mixed office and light industrial park, or other groupings
of office buildings.
• Site size. Springfield will need five sites 5 to 20 acres and one site
20 and 50 acres for office uses.
o Springfield will need five sites of approximately 10 to 15
acres each.
o Springfield will need one site of approximately 30 to 40
acres. This site should be dedicated to an office park.
• Street access. Office sites should be located on an arterial or major
collector streets. Traffic from office sites should not be routed
through residential neighborhoods.
• Topography. Office sites should be relatively flat slopes of not
more than 15%e.
• Access to services. City services should be accessible to the site,
including sanitary sewer, and municipal water during the 20-year
planning period.
• Land ownership. Sites with a two or fewer owners are necessary to
reduce the cost and uncertainty of land assembly.
• Surrounding land uses. Office uses are compatible with light
industrial uses, retail, other services, or high-density residential
uses.
RETAIL
The site needs analysis (Table 4-4) identified a need for four sites larger
than five acres for retail uses. Based on the analysis of land supply and site
needs in Table 5-1, Springfield will need one site 20 to 50 acres for retail
use over the 2010-2030 period. This site is expected to provide
opportunities for large-scale retail development for multiple retail
businesses (i.e., a community shopping center).
• Site size. Springfield will need one site of approximately 10 to 15
acres for a community shopping center.
Attachment 1-78
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 63
• Street access. The retail site should be located on an arterial or
major collector street. Traffic from the site should not be routed
through residential neighborhoods.
• Topography. The retail site should be relatively flat with slopes no
greater than 10%.
• Access to services. City services should be accessible to the site,
including sanitary sewer, and municipal water during the 20-year
planning period.
• Land ownership. Sites with not more than two ownerships are
necessary to reduce the cost and uncertainty of land assembly.
• Surrounding land uses. Retail uses are compatible with office,
other services, industrial, business park, or high-density residential
uses.
• Visibility. The retail site must be highly visible from arterial streets
or Interstate 5.
OTHER SERVICES
The site needs analysis (Table 4-4) identified a need for five sites larger
than five acres for other services. Based on the analysis of land supply and
site needs in Table 5-1, Springfield will need four sites 20 to 50 acres for
other services over the 2010-2030 period. These sites are expected to
provide opportunities for a wide range of service uses, such as medical
services, government facilities, and education.
• Site size. Springfield will need four sites of approximately 10 to 15
acres each.
• Street access. Other service sites should be located on an arterial or
major collector streets. Traffic from the sites should not be routed
through residential neighborhoods.
• Topography. The sites should be relatively flat with slopes of 15%
or less.
• Access to services. City services should be accessible to the site,
including sanitary sewer, and municipal water over the 20-year
planning period.
• Land ownership. Sites with two are fewer owners are necessary to
reduce the cost and uncertainty of land assembly.
• Surrounding land uses. Other service sites uses may be compatible
with office, retail, industrial, business park, or high-density
residential uses.
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IMPLICATIONS
The analysis of presented in the economic opportunities analysis has
implications for Springfield’s economic land needs.
• Economic growth. Decision makers and community members that
participated in the economic opportunities analysis agreed that
economic growth is desirable over the planning period. The
employment forecast indicates Springfield will add 13,440 new
employees between 2010 and 2030 using the OAR 660-024-
0040(8)(a)(ii) methodology. The economic opportunities analysis
assumes that Springfield will have employment growth in a wide
variety of businesses, from services and retail for residents to
industrial development to medical services. The City wants to
diversify its economy and attract higher wage and professional
jobs.
• Buildable lands. Springfield has 3,414 acres that are designated for
industrial and other employment use. About two-thirds of the land
designated for employment within Springfield’s UGB is considered
developed and is not expected to redevelop over the 20 year
planning period. Less than 15% of this land is buildable,
unconstrained land. The majority of buildable, unconstrained
employment land in Springfield has existing development on it that
is expected to redevelop over the planning period. Springfield has a
lack of buildable large sites, with one buildable site 20 acres and
larger and 23 buildable sites in the five to 20 acre size range.
• Employment that will not require vacant land. Springfield assumed
that 52% of employment would not require vacant employment
land.19 Springfield’s assumptions about employment that will not
require vacant land are as follows:
o Fourteen percent of employment (1,918 employees) will
locate in non-employment designations. These
employees will include people with home occupations,
working from home, and businesses that locate in
residential or other non-employment designations. This
assumption is based on the percent of employment
located in non-employment designations in 2006. See
19 The estimate of 52% of new employment not requiring vacant land is based on the assumption that 1,918 employees will
locate in non-employment designations, 1,344 employees will locate in existing built space, and 3,669 employees will locate on
redevelopable sites. The total number of new employees not requiring new land is 6,931 employees, which is approximately
52% of the forecasted growth of 13,440 jobs.
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Appendix C and Table C-7 for more information about
this assumption.
o Ten percent of new employment (1,344 employees) will
locate in existing built space. See Appendix C and Table
C-7 for more information about this assumption.
o Twenty-seven percent of new employment (3,669
employees) will locate on redevelopable sites. Table 5-1
shows that Springfield assumes 187 industrial sites and
340 commercial and mixed use sites will redevelop over
the planning period. The estimate of employment on
these sites was based on the average number of
employees per site by site size in 2006. See Chapter 2 for
more information about redevelopment assumptions.
• Redevelopment potential. The analysis of redevelopment potential
and need for employment land assumes that Springfield will have
substantial redevelopment over the planning period. Consistent
with City Council policies, the areas that are expected to have the
most redevelopment are in Glenwood, especially along the
Willamette Riverfront and Franklin/McVay corridor , and in the
Downtown Urban Renewal District. All land deficiencies for sites
smaller than five acres are expected to be addressed through
redevelopment of existing sites. The majority of retail land needs
are expected to be addressed through redevelopment.
The City will need to make strategic investments that support
redevelopment and to continue supporting redevelopment through
City plans and policies. For example, redevelopment in the City’s
targeted Downtown and Glenwood areas will require substantial
investments in public infrastructure to provide public facilities and
remove the existing impediments to development.
• Need for large sites. Springfield will be able to meet employment
land needs on sites five acres and smaller within the existing UGB,
through redevelopment, infill development, and employment uses
on non-employment land (e.g., home occupations). The
employment land needs that may not be met within the UGB are
for sites five acres and larger. The City only one buildable site 20
acres or larger.
Availability of sites 20 acres and larger is important for attracting or
growing large businesses, which are often traded-sector businesses.
If the City does not have these large sites, there is little chance that
the City will attract these types of businesses. While it may not be
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clear exactly what the business opportunities may be in ten to
twenty years, it is clear that these businesses will not locate in
Springfield if land is not available for development. For example, in
the past twenty years, most of the Gateway area developed. The
area has a mix of uses including a regional mall, apartments,
offices, and more recently, the PeaceHealth Campus. Twenty-years
ago it would have seemed highly unlikely that PeaceHealth would
build their new facility in Springfield. If the City had not had
desirable, serviceable land available, PeaceHealth would probably
not have located their new facility in Springfield.
• Short-term land supply. Based on the Goal 9 definition of short-term
land supply and criteria for “engineering feasibility,” the majority
of buildable land within the Springfield UGB is part of the short-
term land supply, assuming that funding is available to extend
services. The Goal 9 rule does not account for land availability,
such as whether the landowner is willing to sell it or the owner is
willing to redevelop it. The Goal 9 rule also does not account for
differences in site characteristics, such as site size. As a result,
developers may have difficulty finding developable land with
specific site characteristics, such as large sites with highway access.
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 67
National, State, County,
Appendix A and Local Trends
This appendix summarizes national, state, county, and local trends
affecting Springfield. It presents a demographic and socioeconomic profile
of Springfield (relative to Lane County and Oregon) and describes trends
that will influence the potential for economic growth in Springfield. This
appendix covers recent and current economic conditions in the City, and
forecasts from the State Employment Department for employment growth
in Lane County. This appendix meets the intent of OAR 660-009-0015(1).
NATIONAL, STATE, AND REGIONAL TRENDS
NATIONAL TRENDS
Economic development in Springfield over the next twenty years will
occur in the context of long-run national trends. The most important of
these trends include:
• The aging of the baby boom generation, accompanied by
increases in life expectancy. The number of people age 65 and
older will more than double by 2050, while the number of people
under age 65 with grow only 22 percent. The economic effects of
this demographic change include a slowing of the growth of the
labor force, an increase in the demand for healthcare services, and
an increase in the percent of the federal budget dedicated to Social
Security and Medicare.20
Baby boomers are expecting to work longer than previous
generations. An increasing proportion of people in their early to
mid-50s expect to work full-time after age 65. In 2004, about 40% of
these workers expect to work full-time after age 65, compared with
about 30% in 1992.21 This trend can be seen in Oregon, where the
share of workers 65 years and older grew from 2% of the workforce
20 The Board of Trustees, Federal Old-Age and Survivors Insurance and Federal Disability Insurance Trust Funds, 2008, The
2008 Annual Report of the Board of Trustees of the Federal Old-Age and Survivors Insurance and Federal Disability Insurance Trust
Funds, April 10, 2008.
21 “The Health and Retirement Study,” 2007, National Institute of Aging, National Institutes of Health, U.S. Department of
Health and Human Services.
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in 1992 to 3% of the workforce in 2002, an increase of 64%. Over the
same ten-year period, workers 45 to 64 years increased by 70%.22
• Tightening labor force. Growth in the labor force is projected to
slow over the 2006-2016 period as a result of: (1) aging and
retirement of the baby boomer generation and (2) the labor force
participation by women has peaked. Job growth is expected to
outpace population growth, with a 10% increase in employment
(15.6 million jobs) compared to a 9% increase in civilian
noninstitutional population 16 years and older (22 million people).23
• Need for replacement workers. The need for workers to replace
retiring baby boomers will outpace job growth. According to the
Bureau of Labor Statistics, net replacement needs will be 33.4
million job openings over the 2006-2016 period, more than twice
the growth in employment of 15.6 million jobs. Management
occupations and teachers will have the greatest need for
replacement workers because these occupations have older-than-
average workforce.24
• Increases in labor productivity. Productivity, as measured by
output per hour, increased over the 1995 to 2005 period. The largest
increases in productivity occurred over the 1995 to 2000 period, led
by industries that produced, sold, or intensively used information
technology products. Productivity increased over the 2000 to 2005
period but at a slower rate than during the latter half of the 1990’s.
The sectors that experienced the largest productivity increases over
the 2000 to 2005 period were: Information, Manufacturing, Retail
Trade, and Wholesale Trade. Productivity in mining decreased
over the five-year period. 25
• Continued trend towards domestic outsourcing. Businesses
continue to outsource work to less expensive markets. Outsourcing
generally falls into two categories: (1) moving jobs from relatively
expensive areas to less expensive areas within the U.S. and (2)
moving jobs outside of the U.S. to countries with lower labor costs.
22 “Growing Numbers of Older Workers in Oregon,” Oregon Employment Department.
23 Arlene Dohm and Lyn Shniper, “Occupational Employment Projections to 2016,” Monthly Labor Review, November 2007, pp.
86-125.
24 Arlene Dohm and Lyn Shniper, “Occupational Employment Projections to 2016,” Monthly Labor Review, November 2007, pp.
86-125.
25 Corey Holman, Bobbie Joyeaux, and Christopher Kask, “Labor Productivity trends since 2000, by sector and industry,”
Bureau of Labor Statistics Monthly Labor Review, February 2008.
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 69
About three-quarters of layoffs in the U.S. between 1995 and 2004
were the result of domestic relocation, involving movement of
work within the same company. The industries with the largest
amounts of domestic outsourcing were: manufacturing, retail trade,
and information.26
• Continued growth in global trade and the globalization of
business activity. With increased global trade, both exports and
imports rise. Faced with increasing domestic and international
competition, firms will seek to reduce costs through implementing
quality- and productivity-enhancing technologies, such as robotics
or factor automation. In addition, some production processes will
be outsourced offshore.27
• Continued shift of employment from manufacturing and
resource-intensive industries to the service-oriented sectors of the
economy. Increased worker productivity and the international
outsourcing of routine tasks lead to declines in employment in the
major goods-producing industries. Projections from the Bureau of
Labor Statistics indicate that U.S. employment growth will continue
to be strongest in healthcare and social assistance, professional and
business services, and other service industries. Construction
employment will also grow but manufacturing employment will
decline.28
• The importance of high-quality natural resources. The
relationship between natural resources and local economies has
changed as the economy has shifted away from resource extraction.
Increases in the population and in households’ incomes, plus
changes in tastes and preferences, have dramatically increased
demands for outdoor recreation, scenic vistas, clean water, and
other resource-related amenities. Such amenities contribute to a
region’s quality of life and play an important role in attracting both
households and firms.29
26 Sharon P. Brown and Lewis B. Siegel, “Mass Layoff Data Indicate Outsourcing and Offshoring Work,” Monthly Labor Review,
August 2005, pp. 3-10.
27 Eric B. Figueroa and Rose A. Woods, 2007, “Industry Output and Employment Projections to 2016,” Monthly Labor Review,
November 2007, pp. 53-85.
28 Eric B. Figueroa and Rose A. Woods, 2007, “Industry Output and Employment Projections to 2016,” Monthly Labor Review,
November 2007, pp. 53-85.; Arlene Dohm and Lyn Shniper, “Occupational Employment Projections to 2016,” Monthly Labor
Review, November 2007, pp. 86-125.
29 For a more thorough discussion of relevant research, see, for example, Power, T.M. and R.N. Barrett. 2001. Post-Cowboy
Economics: Pay and Prosperity in the New American West. Island Press, and Kim, K.-K., D.W. Marcouiller, and S.C. Deller. 2005.
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• Continued westward and southward migration of the U.S.
population. Although there are some exceptions at the state level, a
2006 U.S. Census report documents an ongoing pattern of interstate
population movement from the Northeast and Midwest to the
South and West.30
• The growing importance of education as a determinant of wages
and household income. According to the Bureau of Labor
Statistics, a majority of the fastest growing occupations will require
an academic degree, and on average they will yield higher incomes
than occupations that do not require an academic degree. The
fastest growing of occupations requiring an academic degree will
be: computer software application engineers, elementary school
teachers, and accountants and auditors. Occupations that do not
require an academic degree (e.g., retail sales person, food
preparation workers, and home care aides) will grow, accounting
for about half of all jobs by 2016. These occupations typically have
lower pay than occupations requiring an academic degree. 31
The national median income in 2006 was about $32,000. Workers
without a high school diploma earned $13,000 less than the median
income and workers with a high school diploma earned $6,000 less
than median income. Workers with some college earned slightly
less than median and workers with a bachelor’s degree earned
$13,000 more than median. Workers in Oregon experience the same
patterns as the nation but pay is generally lower in Oregon than the
national average.32
• Continued increase in demand for energy. Energy prices are
forecast to remain at relatively high levels, as seen in the 2006 to
2008 period, possibly increasing further over the planning period.
Output from the most energy-intensive industries is expected to
decline, but growth in the population and in the economy is
expected to increase the total amount of energy demanded. Energy
sources are expected to diversify and the energy efficiency of
“Natural Amenities and Rural Development: Understanding Spatial and Distributional Attributes.” Growth and Change 36 (2):
273-297.
30 Marc J. Perry, 2006, Domestic Net Migration in the United States: 2000 to 2004, Washington, DC, Current Population Reports,
P25-1135, U.S. Census Bureau.
31 Arlene Dohm and Lyn Shniper, “Occupational Employment Projections to 2016,” Monthly Labor Review, November 2007, pp.
86-125.
32 “Growing Number of Older Workers in Oregon,” Oregon Employment Department and American Community Survey, U.S.
Census, 2006.
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 71
automobiles, appliances, and production processes are projected to
increase. Despite increases in energy efficiency and decreases in
demand for energy by some industries, demand for energy is
expected to increase over the 2008 to 2030 period because of
increases in population and economic activity. 33
• Impact of rising energy prices on commuting patterns. Energy
prices may continue to be high (relative to historic energy prices) or
continue to rise over the planning period.34 The increases in energy
prices may impact willingness to commute long distances. There is
some indication that increases in fuel prices have resulted in
decreased suburban housing price (i.e., housing demand),
especially in large urban areas (e.g., Los Angeles or Chicago) and
suburbs far from the center city. If this pattern continues, the area
in Oregon most likely to be most impacted is Portland, which has
the largest area of urban and suburban development in the state.35
• Possible effect of rising transportation and fuel prices on
globalization. Increases in globalization are related to the cost of
transportation: When transportation is less expensive, companies
move production to areas with lower labor costs. Oregon has
benefited from this trend, with domestic outsourcing of call centers
and other back office functions. In other cases, businesses in
Oregon (and the nation) have “off-shored” employment to other
countries, most frequently manufacturing jobs.
Increases in either transportation or labor costs may impact
globalization. When the wage gap between two areas is larger than
the additional costs of transporting goods, companies are likely to
shift operations to an area with lower labor costs. Conversely,
when transportation costs increase, companies may have incentive
to relocate to be closer to suppliers or consumers.
This effect occurs incrementally over time and it is difficult to
measure the impact in the short-term. If fuel prices and
transportation costs decrease over the planning period, businesses
may not make the decision to relocate (based on transportation
33 Energy Information Administration, 2008, Annual Energy Outlook 2008 with Projections to 2030, U.S. Department of Energy,
DOE/EIA-0383(2008), April.
34 Energy Information Administration, 2008, Annual Energy Outlook 2008 with Projections to 2030, U.S. Department of Energy,
DOE/EIA-0383(2008), April
35 Cortright, Joe. “Driven to the Brink: How the Gas Price Spike Popped the Housing Bubble and devalued the Suburbs,” May
2008.
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costs) because the benefits of being closer to suppliers and markets
may not exceed the costs of relocation.
• Growing opportunities for “green” businesses. Businesses are
increasingly concerned with “green” business opportunities and
practices. These business practices are concerned with “the design,
commercialization, and use of processes and products that are
feasible and economical while reducing the generation of pollution
at the source and minimizing the risk to human health and the
environment.”36
Green business opportunities have historically been at the mercy of
feasibility and economics; if a firm ignores feasibility and
economics while trying to be green, the firm may not be able to
afford to operate long enough to learn how to make green
businesses feasible. The three types of green business opportunities
are products, processes, and education.
o Producing green products. Green products perform the
function of regular products, but do it in a way that uses
fewer resources or creates less pollution. For example,
hybrid vehicles are green because they use less gasoline to
operate and add fewer pollutants to the air. Yet hybrid
vehicles serve the same function as non-hybrid cars. Another
example is bamboo fencing and lumber, which is green
because bamboo is more renewable than traditional lumber.
Bamboo products have the strength necessary for building.
o Providing education about green practices or products. Green
education is often closely related to producing green
products and is often done by consultants or nonprofits.
Examples of companies involved in green education include
the U.S. Green Building Council, which certifies buildings as
green (LEED certification), or a consulting firm that writes a
green (or sustainable) plan for a city or business.
o Using green business practices. Green business practices are
alternative methods of doing business that promote resource
conservation, prevent or reduce pollution, or have other
beneficial environmental effects. Examples of green business
processes include: buying products locally to reduce
shipping distance, recycling waste products (where
36 Urban Green Partnership at urbangreenpartnership.org
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 73
possible), or maximizing the use of natural lighting to
reduce use of electricity and light bulbs.
For example, ECONorthwest is a green educator because we
help our clients manage natural resources effectively and
take all costs and benefits of a particular action into account
in order to properly judge the correct course of action. A
frequent method of marketing green products involves
green education. It is much easier to sell a hybrid car to a
customer who knows the environmental benefits of owning
a hybrid, so educating potential customers can aid greatly in
increasing sales.
• Potential impacts of global climate change. There is growing
support for but not a consensus about whether global climate
change is occurring as a result of greenhouse gas emissions. There
is a lot of uncertainty surrounding global climate change, including
the pace of climate change and the ecological and economic impacts
of climate changes. Climate change may result in the following
changes in the Pacific Northwest: (1) increase in average
temperatures, (2) shift in the type of precipitation, with more
winter precipitation falling as rain, (3) decrease in mountain snow-
pack and earlier spring thaw and (4) increases in carbon dioxide in
the air.37 Assuming that global climate change is occurring and will
continue to occur over the next 20-years, a few broad, potential
economic impacts for the nation and Pacific Northwest include:38
o Potential impact on agriculture and forestry. Climate change
may impact Oregon’s agriculture through changes in:
growing season, temperature ranges, and water availability.39
Climate change may impact Oregon’s forestry through
increase in wildfires, decrease in the rate of tree growth,
change in mix of tree species, and increases in disease and
pests that damage trees.40
37 “Economic Impacts of Climate Change on Forest Resources in Oregon: A Preliminary Analysis,” Climate Leadership
Initiative, Institute for Sustainable Environment, University of Oregon, May 2007.
38 The issue of global climate change is complex and there is a substantial amount of uncertainty about climate change. This
discussion is not intended to describe all potential impacts of climate change but to present a few ways that climate change
may impact the economy of cities in Oregon and the Pacific Northwest.
39 “The Economic Impacts of Climate Change in Oregon: A preliminary Assessment,” Climate Leadership Initiative, Institute
for Sustainable Environment, University of Oregon, October 2005.
40 “Economic Impacts of Climate Change on Forest Resources in Oregon: A Preliminary Analysis,” Climate Leadership
Initiative, Institute for Sustainable Environment, University of Oregon, May 2007.
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o Potential impact on tourism and recreation. Impacts on
tourism and recreation may range from: (1) decreases in
snow-based recreation if snow-pack in the Cascades
decreases, (2) negative impacts to tourism along the Oregon
Coast as a result of damage and beach erosion from rising
sea levels,41 (3) negative impacts on availability of water
summer river recreation (e.g., river rafting or sports fishing)
as a result of lower summer river flows, and (4) negative
impacts on the availability of water for domestic and
business uses.
o Potential changes in government policies. There is currently no
substantial national public policy response to global climate
change. States and regional associations of states are in the
process of formulating policy responses to address climate
change including: increasing renewable energy generation,
selling agricultural carbon sequestration credits, and
encouraging energy efficiency.42 Without clear indications of
the government policies that may be adopted, it is not
possible to assess the impact of government policies on the
economy.
Global climate change may offer economic opportunities. The
search for alternative energy sources may result in increased
investment and employment in “green” energy sources, such as
wind, solar, and biofuels. Firms in the Northwest are well
positioned to lead efforts on climate change mitigation, which may
result in export products, such as renewable technologies or green
manufacturing. 43
Short-term national trends will also affect economic growth in the region,
but these trends are difficult to predict. At times these trends may run
counter to the long-term trends described above. A recent example is the
downturn in economic activity in 2007 following declines in the housing
market and the mortgage banking crisis. The result of the economic
downturn has been a decrease in employment related to the housing
market, such as construction and real estate. Employment in these
industries will recover as the housing market recovers and will continue
41 “The Economic Impacts of Climate Change in Oregon: A preliminary Assessment,” Climate Leadership Initiative, Institute
for Sustainable Environment, University of Oregon, October 2005.
42 Pew Center on Global Climate Change website: http://www.pewclimate.org/what_s_being_done/in_the_states/
43 “The Economic Impacts of Climate Change in Oregon: A preliminary Assessment,” Climate Leadership Initiative, Institute
for Sustainable Environment, University of Oregon, October 2005.
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to play a significant role in the national, state, and local economy over the
long run. This report takes a long-run perspective on economic conditions
(as the Goal 9 requirements intend) and does not attempt to predict the
impacts of short-run national business cycles on employment or economic
activity.
STATE TRENDS
State and regional trends will also affect economic development in
Springfield over the next twenty years. The most important of these trends
includes: continued in-migration from other states, distribution of
population and employment across the State,
• Continued in-migration from other states. Oregon will continue to
experience in-migration from other states, especially California and
Washington. According to a U.S. Census study, Oregon had net
interstate in-migration (more people moved to Oregon than moved
from Oregon) during the period 1990-2004.44 Oregon had an annual
average of 26,290 more in-migrants than out-migrants during the
period 1990-2000. The annual average dropped to 12,880 during the
period 2000-2004.45 Most in-migrants come from California,
Washington, and other western states.46
• Concentration of population and employment in the Willamette
Valley. Nearly 70% of Oregon’s population lives in the Willamette
Valley. About 10% of Oregon’s population lives in Southern
Oregon and 9% lives in Central Oregon. The Oregon Office of
Economic Analysis (OEA) forecasts that population will continue to
be concentrated in the Willamette Valley through 2040, increasing
slightly to 71% of Oregon’s population.
Employment growth generally follows the same trend as
population growth. Employment growth varies between regions
even more, however, as employment reacts more quickly to
changing economic conditions. Total employment increased in each
44 Marc J. Perry, 2006, Domestic Net Migration in the United States: 2000 to 2004, Washington, DC, Current Population Reports,
P25-1135, U.S. Census Bureau.
45 In contrast, California had net interstate out-migration over the same period. During 1990-2000, California had an annual
average of 220,871 more out-migrants than in-migrants. The net outmigration slowed to 99,039 per year during 2000-2004.
46 Oregon Department of Motor Vehicles collects data about state-of-origin for drivers licenses surrendered by people applying
for an Oregon drivers license from out-of-state. Between 2000 and 2007, about one-third of licenses surrendered were from
California, 15% to 18% were surrendered from Washington, and about 17% to 19% were from the following states: Arizona,
Idaho, Nevada, Colorado, and Texas.
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of the state’s regions over the period 1970-2006 but over 70% of
Oregon’s employment was located in the Willamette Valley.
• Change in the type of the industries in Oregon. As Oregon has
transitioned away from natural resource-based industries, the
composition of Oregon’s employment has shifted from natural
resource based manufacturing and other industries to service
industries. The share of Oregon’s total employment in Service
industries increased from its 1970s average of 19% to 30% in 2000,
while employment in Manufacturing declined from an average of
18% in the 1970s to an average of 10% in 2005.
• Shift in manufacturing from natural resource-based to high-tech
and other manufacturing industries. Since 1970, Oregon started to
transition away from reliance on traditional resource-extraction
industries. A significant indicator of this transition is the shift
within Oregon’s manufacturing sector, with a decline in the level of
employment in the Lumber & Wood Products industry and
concurrent growth of employment in other manufacturing
industries, such as high-technology manufacturing (Industrial
Machinery, Electronic Equipment, and Instruments),
Transportation Equipment manufacturing, and Printing and
Publishing. 47
• Continued importance of manufacturing to Oregon’s economy.
Revenue from exports totaled $16.5 million in 2007, an increase of
$5.1 million or 45% since 2000. Four of the five industries that
accounted for more than three-quarters of revenue from exports in
2007 ($12.6 million) were manufacturing industries: Computers and
Electronic Production ($6.3 million); Crop Production ($2.2 million);
Transportation Equipment ($1.7 million); Machinery Manufacturers
($1.7 million); and Chemical Manufacturers ($0.7
million).Manufacturing employment is concentrated in five
counties in the Willamette Valley or Portland area: Washington,
Multnomah, Lane, Clackamas, and Marion Counties. Average
wages for employees of manufacturing firms in these counties in
2006 ranged from $71,500 to $34,200 and were generally above the
state’s average (about $38,000) 48
47 Although Oregon’s economy has diversified since the 1970’s, natural resource-based manufacturing accounts for more than
one-third of employment in manufacturing in Oregon in 2006, with the most employment in Wood Product and Food
manufacturing.
48 OECDD, “Economic Data Packet, March 2008.”
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• Small businesses continue to account for over 50% of
employment in Oregon. Small business, with 100 or fewer
employees, account for 51% of private sector employment in
Oregon, up from about 50.2% of private employment in 2000 and
down from 52.5% in 1996. Workers of small businesses typically
had lower wages than the state average, with average wages of
$33,130 compared to the statewide average of about $38,000 in 2006.
• Continued lack of diversity in the State Economy. While the
transition from Lumber and Wood Products manufacturing to
high-tech manufacturing has increased the diversity of
employment within Oregon, it has not significantly improved
Oregon's diversity relative to the national economy. Oregon's
relative diversity has historically ranked low among states. Oregon
ranked 35th in diversity (1st = most diversified) based on Gross State
Product data for 1963–1986, and 32nd based on data for the 1977–
1996 period.49 A recent analysis, based on 2006 data, ranked Oregon
31st.50 These rankings suggest that Oregon is still heavily dependent
on a limited number of industries. Relatively low economic
diversity increases the risk of economic volatility as measured by
changes in output or employment.
The changing composition of employment has not affected all regions of
Oregon evenly. Growth in high-tech and Services employment has been
concentrated in urban areas of the Willamette Valley and Southern
Oregon, particularly in Washington, Benton, and Josephine Counties. The
brunt of the decline in Lumber & Wood Products employment was felt in
rural Oregon, where these jobs represented a larger share of total
employment and an even larger share of high-paying jobs than in urban
areas.
49 LeBre, Jon. 1999. "Diversification and the Oregon Economy: An Update." Oregon Labor Trends. February.
50 CFED, 2007, The Development Report Card for the States, http://www.cfed.org.
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ECONOMIC TRENDS IN LANE COUNTY AND SPRINGFIELD
Future economic growth in Springfield will be affected in part by
demographic and economic trends in the city and surrounding region. A
review of historical demographic and economic trends provides a context
for establishing a reasonable expectation of future growth in Springfield.
In addition, the relationship between demographic and economic
indicators such as population and employment can help assess the local
influence of future trends and resulting economic conditions. This section
addresses the following trends in Springfield:
• Population and demographics
• Household and personal income
• Employment
• Business activity
• Outlook for growth in Springfield
POPULATION AND DEMOGRAPHIC CHARACTERISTICS
Population growth in Oregon tends to follow economic cycles.
Historically, Oregon’s economy is more cyclical than the nation’s, growing
faster than the national economy during expansions, and contracting more
rapidly than the nation during recessions. Oregon grew more rapidly than
the U.S. in the 1990s (which was generally an expansionary period) but
lagged behind the U.S. in the 1980s. Oregon’s slow growth in the 1980s
was primarily due to the nationwide recession early in the decade. As the
nation’s economic growth has slowed during 2007, Oregon’s population
growth began to slow.
Oregon’s population grew from 2.8 million people in 1990 to 3.7 million
people in 2007, an increase of more than 900,000 people at an average
annual rate of 1.6%. Oregon’s growth rate slowed to 1.3% annual growth
between 2000 and 2007.
Lane County grew slower than the State average between 1990 and 2007,
growing at 1.1% annually and adding more than 60,000 people. More than
60% of the County’s population lived in the Eugene-Springfield area in
2007, with about 17% of the County’s population in Springfield.
Springfield’s population grew faster than the County average, at 1.5%
annually, adding 12,637 residents over the seventeen-year period.
Attachment 1-94
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 79
Table A-1. Population in the U.S., Oregon, the Willamette Valley, Lane
County, Springfield, and Eugene, 1990-2007
Source: U.S. Census, the Population Research Center at Portland State University.
Notes: Benton, Clackamas, Lane, Linn, Marion, Multnomah, Polk, Washington, and Yamhill Counties represent
the Willamette Valley Region.
Migration is the largest component of population growth in Oregon.
Between 1990 and 2007, in-migration accounted for 70% of Oregon’s
population growth. Over the same period, in-migration accounted for
74% of population growth in Lane County, adding nearly 44,500 residents
over the seventeen-year period.
Springfield’s population was younger than the County or State averages
in 2008. Figure A-1 shows the age structure for Oregon, Lane County,
Eugene, and Springfield in 2008. Springfield had a greater proportion of
its population under 44 years of age (66%) than Eugene (62%), Lane
County (58%), or Oregon (60%). Springfield also had a smaller share of
population aged 55 and older, 21% of Springfield’s population, compared
to 24% in Eugene, 27% in the County, 26% in the State.
Area 1990 2000 2007 Number Percent AAGR
U.S.248,709,873 281,421,906 301,621,157 52,911,284 21% 1.1%
Oregon 2,842,321 3,421,399 3,745,455 903,134 32% 1.6%
Willamette Valley 1,962,816 2,380,606 2,602,790 639,974 33% 1.7%
Lane County 282,912 322,959 343,140 60,228 21% 1.1%
Springfield 44,683 52,864 57,320 12,637 28% 1.5%
Eugene 112,669 137,893 153,690 41,021 36% 1.8%
Change 1990 to 2007Population
Attachment 1-95
Page 80 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Figure A-1. Population by age, Oregon, Lane County,
Eugene, and Springfield, 2008
Source: Claritas 2008, percentages calculated by ECONorthwest.
The average age of Springfield residents is increasing. According to the US
Census, Springfield’s average age was 32 in 2000, 30 in 1990, and 26 in
1980. Table A-2 shows the change in age distribution for Springfield
between 2000 and 2008. The age group that increased the most was people
aged 45 to 64, which grew by 2,540 people (24%). This age group’s
proportion of the total population increased from 20% to 23% during this
time period. The largest percentage decrease was in people aged 18 to 24,
which shrunk by 913 people (16%).
0%5%10% 15% 20%
Under 10
10-17
18-24
25-34
35-44
45-54
55-64
65 and over
AgePercent of Population
Oregon Lane County Springfield Eugene
Attachment 1-96
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 81
Table A-2. Change in age distribution, Springfield, 2000-2008
Source: U.S. Census 2000 and Claritas 2008
Note: Percent change over the 2000 to 2008 period is based on the growth in the age group divided by the
number of people in the age group in 2000. For example, people 5 to 17 years old had a 4% percent change,
which was calculated using the following calculation: 408/10,069 = 4%.
Note: Share refers to the change in the percent of an age group between 2000 and 2008. For example, the
share of people 18 to 24 years old decreased from 11% to 9%, a decrease of 2.3%.
Note: Percentages may not add to 100% as a result of rounding errors.
HOUSEHOLD AND PERSONAL INCOME
Income in Lane County and Springfield has historically been lower than
the State or national averages. Lane County’s median household income
in 2006 was $42,127, compared with $46,230 for Oregon and the national
average of $48,451. The median household income in Springfield in 1999
was $33,031, 89% of the County average of $36,942.
Lane County’s median household income in 2006 was $42,127, compared
with $46,230 for Oregon and the national average of $48,451. Figure A-2
shows the distribution of household income in Oregon, Lane County,
Eugene, and Springfield in 2008. Figure A-2 shows that a larger share of
households in Springfield (32%) had an income of $25,000 or less,
compared to Lane County (27%) or the State (23%). Springfield also has a
lower share of households with income above $75,000 (17%) than Eugene
(23%), the County (23%), or the State (27%).
Age Group Number Percent Number Percent Number Percent Share
Under 5 4,327 8% 4,121 7% -206 -5% -0.8%
5-17 10,069 19% 10,477 19% 408 4% -0.3%
18-24 5,890 11% 4,977 9% -913 -16% -2.3%
25-44 16,609 31% 17,372 31% 763 5% -0.4%
45-64 10,546 20% 13,086 23% 2,540 24% 3.4%
65 and over 5,423 10% 5,983 11% 560 10% 0.4%
Total 52,864 100% 56,016 100% 3,152 6% 0.0%
2000 2008 Change 2000 to 2008
Attachment 1-97
Page 82 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Figure A-2. Distribution of household income of Oregon, Lane
County, Eugene, and Springfield, 2008
Source: Claritas 2008
Figure A-3 shows the change in per capita personal income for the U.S.,
Oregon, and Lane County between 1980 and 2005 (in constant 2005
dollars). Oregon’s per capita personal income was consistently lower than
the U.S. average over the 25-year period. While the gap between the
Oregon and U.S. average narrowed in the mid-1990s, it widened again
starting in the late 1990’s.
Lane County’s personal income over the 25-year period was consistently
lower than Oregon’s personal income. In 2005, per capita personal income
in Lane County was approximately 92% of Oregon’s per capital income
and 87% of the U.S. per capital income. During the 25-year period, per
capita personal income in both Lane County and Oregon grew by 49%,
while personal income grew by 59% nationally during the same period.
0% 5% 10% 15% 20% 25% 30% 35%
Less than $25,000
$25,000 - $49,999
$50,000 - $74,999
$75,000 - $99,999
$100,000 -
$150,000
Greater than
$150,000
Household IncomePercent of Households
Oregon Lane County Springfield Eugene
Attachment 1-98
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 83
Figure A-3. Per capita personal income in the U.S., Oregon, and Lane
County, 1980-2005, ($2005)
Source: Regional Economic Information System, Bureau of Economic Analysis, U.S. Department of Commerce
Figure A-4 shows the major sources of per capita personal income for
Oregon and Lane County between 1980 and 2005. Lane County’s share of
personal income from net earnings was lower than for Oregon and the
County’s share of personal income from transfer payments and dividends,
interest, and rent was higher than the State average.
Retirees are most likely to have personal income from current transfers
and dividends, interest, and rent. The larger share of personal income
from these sources makes sense because Lane County has a larger share of
people over 60-years than the State average. Figure A-1 shows that Lane
County has a higher percentage of residents over 60 years old than the
State average. In addition, the share of population aged 65 and older
increased by 16% between 1990 and 2000 in Lane County, compared with
a 12% statewide increase in population 65 and older.
U.S.Oregon Lane County
Attachment 1-99
Page 84 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Figure A-4. Per capita personal income by major sources, Oregon and Lane
County, 1980-2005
Source: Regional Economic Information System, Bureau of Economic Analysis, U.S. Department of Commerce
Table A-3 shows average annual pay per employee in the U.S., Oregon,
and Lane County for 2000 to 2006. The national average wage grew faster
than State or County averages. The average U.S. wage increased by 20%
(more than $7,000), compared to the State increase of 16% (more than
$5,000) or the County increase of 19% (more than $5,000). Wages in Lane
County relative to the U.S. decreased by 1% over the six-year period.
Lane County’s average annual wage has increased by 19% (more than
$5,000) from $27,878 to $33,240 over the 2000 to 2006 period. Lane
County’s average pay has grown faster than the State average, increasing
from 85% of the State average in 2000 to 87% in 2006.
Table A-3. Average annual pay, Oregon
and Lane County (nominal dollars), 2000-2006
Source: Oregon Employment Department and U.S. Bureau of Labor Statistics
Oregon
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
1980 1985 1990 1995 2000 2005
YearPercent of IncomeLane County
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
1980 1985 1990 1995 2000 2005
YearPercent of IncomeCurrent Transfers
Dividends, Interest, Rent
Net Earnings
U.S Oregon
Lane
County
% of
U.S.
% of
State
2000 $35,323 $32,776 $27,878 79% 85%
2001 $36,219 $33,202 $28,982 80% 87%
2002 $36,764 $33,685 $29,427 80% 87%
2003 $37,765 $34,455 $30,325 80% 88%
2004 $39,354 $35,627 $31,339 80% 88%
2005 $40,677 $36,593 $32,302 79% 88%
2006 $42,535 $38,070 $33,240 78% 87%
Change 2000 to 2006
Nominal Change $7,212 $5,294 $5,362
Percent Change 20% 16% 19%
Lane County
Attachment 1-100
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 85
Springfield’s average wages are similar to the County average. The
average wage for workers in Springfield in 2006 was nearly $33,000.
LANE COUNTY EMPLOYMENT TRENDS
Tables A-4 and A-5 present data from the Oregon Employment
Department that show changes in covered employment51 for Lane County
between 1980 and 2005. The changes in sectors and industries are shown
in two tables: (1) between 1980 and 2000 and (2) between 2001 and 2005.
The analysis is divided in this way because of changes in industry and
sector classification that made it difficult to compare information about
employment collected after 2001 with information collected prior to 2000.
Employment data in this section is summarized by sector, each of which
includes several individual industries. For example, the Retail Trade sector
includes General Merchandise Stores, Motor Vehicle and Parts Dealers,
Food and Beverage Stores, and other retail industries.
Table A-4 shows the changes in covered employment by sector in Lane
County between 1980 and 2000. Covered employment in the County grew
from 97,600 to 139,696, an increase of 43% or 42,096 jobs. Every sector
added jobs during this period, except for Mining. The sectors with the
greatest change in employment were Services and Retail Trade, adding a
total of 29,423 jobs or about 70% of all new jobs.
Manufacturing grew by 4,020 jobs during the twenty-year period. The
industries with the largest manufacturing growth were Transportation
equipment manufacturing (R.V. manufacturing), computer and electronics
manufacturing, and machinery manufacturing.
Average pay per employee increased from about $13,700 in 1980 to
$27,900 in 2000. The sectors that grew the fastest generally paid less than
average, with Services paying between 80% to 90% of average and Retail
Trade paying about 60% of average. Manufacturing jobs generally paid
more than the average, varying between 140% of average in 1980 to 124%
of average by 2000.
51 Covered employment refers to jobs covered by unemployment insurance, which includes most wage and salary jobs but
does not include sole proprietors, seasonal farm workers, and other classes of employees.
Attachment 1-101
Page 86 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table A-4. Covered employment in Lane County, 1980-2000
Source: Oregon Employment Department, Oregon Labor Market Information System, Covered Employment & Wages.
Summary by industry and percentages calculated by ECONorthwest
Note: AAGR is average annual growth rate
Table A-5 shows the change in covered employment by sector for Lane
County between 2001 and 2007. Employment increased by 13,549 jobs or
10% during this period. The private sectors with the largest increases in
numbers of employees were Administration Support and Cleaning, Retail
Trade, Construction, and Health and Social Assistance. The sector that lost
the greatest number of employees during this period was Agriculture,
Forestry, Fishing and Mining.
Table A-5. Covered employment in Lane County, 2001-2007
Source: Oregon Employment Department, Oregon Labor Market Information System, Covered Employment & Wages.
Summary by industry and percentages calculated by ECONorthwest
Note: AAGR is average annual growth rate
Sector 1980 1990 2000 Difference Percent AAGR
Agriculture, Forestry & Fishing 1,137 1,863 2,101 964 85% 2.5%
Mining 231 179 154 -77 -33% -1.6%
Construction 4,600 3,992 6,834 2,234 49% 1.6%
Manufacturing 19,638 20,654 23,658 4,020 20% 0.7%
Trans., Comm., & Utilities 3,836 3,750 3,845 9 0% 0.0%
Wholesale Trade 5,578 5,900 6,422 844 15% 0.6%
Retail Trade 20,299 24,429 28,758 8,459 42% 1.4%
Finance, Insurance & Real Estate 4,217 4,523 6,198 1,981 47% 1.6%
Services 18,272 27,817 39,236 20,964 115% 3.1%
Nonclassifiable/all others 13 50 37 24 185% 4.3%
Government 19,779 20,219 22,453 2,674 14% 0.5%
Total 97,600 113,376 139,696 42,096 43% 1.4%
Change 1980 to 2000
Sector 2001 2007 Difference Percent AAGR
Natural Resources and Mining 2,338 2,062 -276 -12% -2.1%
Construction 6,366 8,034 1,668 26%4.0%
Manufacturing 19,697 19,864 167 1% 0.1%
Wholesale 5,300 6,071 771 15% 2.3%
Retail 17,912 19,755 1,843 10%1.6%
Transportation & Warehousing 2,606 3,047 441 17% 2.6%
Information 3,729 3,901 172 5% 0.8%
Finance & Insurance 3,963 4,313 350 9% 1.4%
Real Estate Rental & Leasing 2,508 2,530 22 1% 0.1%
Professional, Scientific & Tech. Srv.5,571 5,658 87 2% 0.3%
Management of Companies 1,818 1,901 83 5% 0.7%
Admin. Support & Cleaning Srv. 6,399 8,738 2,339 37%5.3%
Education 1,067 1,389 322 30% 4.5%
Health & Social Assistance 16,871 18,966 2,095 12%2.0%
Arts, Entertainment & Recreation 1,542 2,163 621 40% 5.8%
Accomodations & Food Services 11,746 12,737 991 8% 1.4%
Other Services (except Public Admin.) 5,552 5,674 122 2% 0.4%
Private Non-Classified 49 45 -4 -8% -1.4%
Government 22,398 24,133 1,735 8% 1.3%
Total 137,432 150,981 13,549 10% 2.4%
Change 2001 to 2007
Attachment 1-102
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 87
Table A-6 shows a summary of employment in Lane County in 2007.
Table A-6 shows the ten largest sectors in bold are the top ten employers,
sectors with below average pay per employee in red, and sectors with
above average pay per employee in blue. Table A-6 shows:
• Construction, Manufacturing, Government, and Health and Social
Assistance were among the sectors with the greatest employment
in Lane County and have above average pay per employee. These
sectors accounted for 47% of employment or nearly 71,000
employees in Lane County.
• Retail, Accommodations and Food Services, and Administration
and Support and Waste Management were among the sectors with
the greatest employment in Lane County and have below average
pay per employee. These sectors accounted for 27% of employment
or more than 41,000 employees in Lane County.
Attachment 1-103
Page 88 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table A-6. Covered employment in Lane County, 2007
Source: Oregon Employment Department, Oregon Labor Market Information System, Covered Employment & Wages.
Summary by industry and percentages calculated by ECONorthwest
Notes: Sectors in bold are the top ten employers, sectors in red have below average pay per employee, and sectors in
blue have above average pay per employee.
Note: Average pay per employee is shown as reported by the Oregon Employment Department.
Sector/Industry
Establish-
ments Employment
Percent of
Employment
Average
Pay per
Employee
Natural Resources & Mining 228 2,062 1% $34,662
Construction 1,249 8,034 5% $41,346
Construction of buildings 445 445 0%$445
Specialty trade contractors 695 695 0%$695
Manufacturing 599 19,864 13% $41,055
Wood product manufacturing 76 4,548 3% $42,423
Machinery manufacturing 51 1,816 1% $48,027
Computer & electronic product mfg.20 1,934 1% $56,594
Transportation equipment mfg.31 4,093 3% $31,942
Wholesale 588 6,071 4% $44,609
Retail 1,276 19,755 13% $24,258
Motor vehicle & parts dealers 159 2,997 2% $39,809
Building material & garden supply stores 85 1,603 1% $27,883
Food & beverage stores 205 4,044 3% $20,451
General merch&ise stores 58 4,073 3% $21,784
Miscellaneous store retailers 174 1,455 1% $20,513
Transportation, Warehousing & Utilties 267 3,047 2% $37,448
Information 180 3,901 3% $50,769
Finance & Insurance 611 4,313 3% $49,753
Credit intermediation & related activities 252 252 0%$252
Insurance carriers & related activitie 230 230 0%$230
Real Estate Rental & Leasing 566 2,530 2% $25,994
Professional, Scientific & Technical Svcs 1,004 5,658 4% $41,314
Management of Companies 87 1,901 1% $66,758
Admin. & Support & Waste Mgmt 484 8,738 6% $21,771
Private Education 135 1,389 1% $23,709
Health & Social Assistance 971 18,966 13% $39,836
Ambulatory health care services 598 6,453 4% $52,408
Nursing & residential care facilities 181 3,915 3% $22,013
Arts, Entertainment & Recreation 151 2,163 1% $13,533
Accomodations & Food Services 861 12,737 8% $13,749
Accommodation 100 100 0% $100
Food services & drinking places 734 734 0% $734
Other Services 1,322 5,674 4% $22,345
Repair & maintenance 309 309 0% $309
Membership associations & organization 437 437 0% $437
Private Non-Classified 66 45 0% $41,167
Government 376 24,133 16% $39,312
Federal 70 1,764 1% $57,977
State 61 6,878 5% $39,498
Local 245 15,491 10% $37,105
Education & Health Services 147 8,547 6% $31,343
Public Administration 49 4,268 3% $47,464
Total 11,021 150,981 100% $34,328
Attachment 1-104
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 89
EMPLOYMENT IN SPRINGFIELD
Table A-7 shows a summary of confidential employment data for
Springfield in 2006. Springfield had 27,310 jobs at 1,819 establishments in
2006, with an average firm size of 15 employees. The sectors with the
greatest employees were: Retail (13%), Government (13%), Health Care
and Social Assistance (11%), and Manufacturing (10%). These sectors
accounted for 17,863 or 65% of Springfield’s jobs.
Attachment 1-105
Page 90 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table A-7. Covered employment in Springfield, 2006
Source: Oregon Employment Department Quarterly Census of Employment and Wages (QCEW). Summary by industry
and percentages calculated by ECONorthwest
Note: The percent column does not add to 100% as a result of rounding errors.
Map A-1 shows employment in Springfield by plan designations and
number of employees in 2006. Map A-1 shows that employees are
distributed throughout Springfield, with concentrations along Main Street
and in Gateway.
Sector / Industry Number % of Total
Agriculture, Forestry, Fishing, and Mining 22 282 1%
Forestry and Logging 11 136 0%
Other Agriculture, Forestry, Fishing, and Mining 11 146 1%
Construction 205 1,922 7%
Manufacturing 104 2,714 10%
Wood Product Manufacturing 18 1,013 4%
Chemical Manufacturing 3 251 1%
Fabricated Metal Product Manufacturing 18 233 1%
Transportation Equipment Manufacturing 7 188 1%
Food Manufacturing 6 111 0%
Plastics and Rubber Products Manufacturing 6 111 0%
Furniture and Related Product Manufacturing 9 80 0%
Machinery Manufacturing 7 68 0%
Other Manufacturing 30 659 2%
Wholesale Trade 71 1,230 5%
Retail 265 3,632 13%
General Merchandise Stores 24 1,008 4%
Food and Beverage Stores 42 744 3%
Motor Vehicle and Parts Dealers 35 339 1%
Building Material, Garden Equipment, & Supplies Dealers 15 278 1%
Electronics and Appliance Stores 16 210 1%
Other Retail 133 1,053 4%
Transportation and Warehousing and Utilities 55 941 3%
Information 24 1,356 5%
Finance and Insurance 99 1,110 4%
Real Estate and Rental and Leasing 98 441 2%
Professional, Scientific, and Technical Services 97 576 2%
Management of Companies and Enterprises 24 343 1%
Admin. & Support and Waste Mgt Services 82 2,460 9%
Private Educational Services 12 109 0%
Health Care and Social Assistance 167 3,069 11%
Arts, Entertainment, and Recreation 30 321 1%
Accommodation and Food Services 179 2,453 9%
Accommodation 12 227 1%
Food Services and Drinking Places 167 2,226 8%
Other Services 217 816 3%
Government 68 3,535 13%
Federal and State 13 368 1%
Local 55 3,167 12%
Total 1,819 27,310 100%
EmployeesEstablish-
ments
Attachment 1-106
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 91
Map A-2 shows the size of employers in Springfield by Plan Designation.
Larger employers are clustered along Main Street, in Gateway, and in
other areas zoned for commercial and industrial use. Small employers are
scattered in most parts of the City.
Attachment 1-107
City of Springfield
O r e g o n
Employers by Number
of Employees
Springfield 2006
ECONorthwest, April 2008
0 1,800 3,600900
Feet¯
City Limits
Urban Growth Boundary
Legend
2006 Employment
0 - 25
26 - 100
101 - 300
301 - 1000
1001 - 5000
Attachment 1-108
City of Springfield
O r e g o n
Employers by Size,
and Type
Springfield 2006
ECONorthwest, April 2008
0 1,800 3,600900
Feet¯
City Limits
Urban Growth Boundary
Legend
Other
0 - 25
26 - 100
101 - 300
301 - 1000
1001 - 5000
Industrial
0 - 25
26 - 100
101 - 300
301 - 1000
1001 - 5000
Attachment 1-109
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 95
Firms wanting to expand or locate in Springfield will be looking for a
variety of site and building characteristics, depending on the industry and
specific circumstances. One way to describe site needs is to group
industries based on building and site characteristics. Each sector has been
uniquely assigned to a “typical” building type, grouped by industrial and
commercial uses.
Table A-8. Converting employment to building types
Source: ECONorthwest based on methodology used by Metro in the report “Urban Growth Report: An
Employment Need Analysis,” 2002
Table A-9 shows employment by Comprehensive Plan Designation in
2006. About 39% of Springfield’s employment is located in commercial
plan designations, with more than 8,000 employees in the Commercial
designation. An additional 34% of the City’s employment is located in
industrial designations. About 16% of Springfield’s employment is located
in residential designations with 10% in the Low Density Residential
designation.
Types of industries
NAICS
Sectors
Industrial
WD
Warehousing &
Distribution Transportation & Wholesale Trade 48-49, 42
GI General Industrial Ag, Mining, Utlilities, Construction, Manufacturing
11, 21,22,
23, 31-33
Commercial
Office Office
Information, FIRE, Professional Srv, Mgt of
Companies, Admin & Support & Waste Mgt,
Utilities, Arts/Entertainment, Other Services 51-56, 71, 81
Retail Retail Retail (incl. Accom & Food Srv)44-45, 72
Med/Gov.
Medical &
Government
Institutions Health & Social Services, Public Administration 61, 62, 92
Building Type
Attachment 1-110
Page 96 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table A-9. Covered employment by Plan Designation, Springfield, 2006
Source: Oregon Employment Department Quarterly Census of Employment and Wages (QCEW) and Springfield GIS data;
calculations and analysis by ECONorthwest
Note: The number of employees shown in Table A-9 (27,090) is fewer than shown in Table A-7 (27,310) because of data issues
between the QCEW and GIS data.
Table A-10 shows the estimated covered employment located in non-
residential plan designations by type of building in Springfield in 2006.
More than half of Springfield’s employment in 2006 was located in Office
and Retail buildings. More than two-thirds of Springfield’s firms were
located in Office and Retail buildings.
Plan Designation Emp. Percent Emp. Percent Emp. Percent
Commercial
Commercial 450 5.7% 7,649 39.8%8,099 29.9%
Major Retail Center 20 0.3% 2,316 12.1%2,336 8.6%
Subtotal 470 6.0%9,965 51.9%10,435 38.5%
Government
Government & Education 67 0.9%660 3.4%727 2.7%
Industrial
Campus Industrial 274 3.5% 2,142 11.1%2,416 8.9%
Heavy Industrial, Special
Heavy Industrial, and Sand
and Gravel 2,908 36.9% 304 1.6%3,212 11.7%
Light Medium Industrial 3,032 38.5% 645 3.4%3,677 13.6%
Subtotal 6,214 78.9%3,091 16.1%9,305 34.3%
Mixed-Use
Commercial Mixed Use 318 4.0% 1,450 7.5%1,768 6.5%
Light Med Ind Mixed Use and
Medium Density Res Mixed 113 1.4% 169 0.9%282 0.7%
Subtotal 431 5.5%1,619 8.4%2,050 7.6%
Residential
High Density Residential 0 0.0% 456 2.4%456 1.7%
Low Density Residential 592 7.5% 2,093 10.9%2,685 9.9%
Medium Density Residential 100 1.3% 1,082 5.6%1,182 4.4%
Subtotal 692 8.8%3,631 18.9%4,323 16.0%
Other
Parks and Open Space 0 0.0% 250 1.3%250 0.9%
TOTAL 7,874 100.0%19,216 100.0%27,090 100.0%
Industrial Commercial Total
Attachment 1-111
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 97
Table A-10. Estimated covered employment in
non-residential plan designations by type of
building, Springfield, 2006
Source: ECONorthwest based on QCEW data
Table A-11 shows the distribution of employees by building type and site
size in non-residential plan designations in Springfield in 2006. About 22%
of Springfield’s employment is on sites 5 to 20 acres, 21% is on sites less
than 1-acre, and 19% is on sites greater than 50 acres.
Table A-11. Percent of employees by building type and site sizes,
Springfield, 2006
Source: ECONorthwest based on QCEW data
Note: Total Employees may not add to 100% because of rounding errors.
The percent of employees by building type and site size was calculated based on the number of employees in
each building type and site size categories using QCEW data and City of Springfield tax lot data.
BUSINESS CLUSTERS
One way to assess the types of businesses that are likely to have future
growth in an area is to examine relative concentration and employment
growth of existing businesses. This method of analysis can help determine
relationships and linkages within in industries, also called industrial
clusters. Sectors that are highly concentrated (meaning there are more
than the “average” number of businesses in a sector in a given area) and
have had high employment growth are likely to be successful industrial
cluster. Sectors with either high concentration of businesses or high
employment group may be part of an emerging cluster, with potential for
future growth.
Building
Type Number Percent Number Percent
WD 2,457 11% 50 8%
GI 4,336 20% 101 17%
Office 6,212 28% 192 31%
Retail 5,500 25% 220 36%
Med/Gov 3,604 16% 49 8%Total 22,109 100% 612 100%
FirmsEmployees
Building
Type
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50
WD 13% 6% 3% 63% 12% 3% 100%
GI 15% 17% 17% 18% 2% 31% 100%
Office 28% 14% 15% 23% 13% 8% 100%
Retail 29% 13% 11% 18% 10% 18% 100%
Med/Gov 9% 4% 8% 5% 35% 38% 100%
Total 21% 12% 12% 22% 13% 19% 100%
Total
Employees
Site Size (acres)
Attachment 1-112
Page 98 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
The Oregon Economic and Community Development Department
(OECDD) prepared a report titled “Oregon’s Traded Clusters: Major
Industries and Trends.” This report identified 25 clusters in Lane County.
• Business Services. This cluster is dominated by Professional,
Scientific, and Technical Services and Employment Services. The
average annual wage varies by sector, with the highest pay in
Professional, Scientific, and Technical Services (about $51,800).
Employment growth in these industries was moderate to fast
between 2003 and 2005. Business Services firms may be attracted to
Springfield as a result of firms located in Springfield, the
availability of educated workers within the region, and the high
quality of life and access to recreation in Springfield.
• Communication Equipment This cluster includes manufacturing
and wholesaling of computer, communications, and audio and
video equipment. Lane County has clusters of both manufacturing
and wholesaling communication equipment but the manufacturing
cluster is bigger in the County. Employment growth in the cluster
was fastest in computer and peripheral manufacturing between
2003 and 2005. The average annual wage in this sector is higher
than the State average, at $68,076. Firms in this cluster may be
attracted to Springfield as the City’s location and access to
transportation, the availability of educated workers within the
region, and the high quality of life and access to recreation in
Springfield.
• Information Technology. This cluster includes
Telecommunications, Software Publishers, and Internet Service
Providers. The average annual wage was above State averages.
Growth in the cluster varied between 2003 and 2005, with a
decrease in Telecommunications employment and increases in
employment with Internet Service Providers. Information
Technology firms may be attracted to Springfield because of the
availability of educated workers within the region and the high
quality of life and access to recreation in Springfield. Springfield
may be attractive as a location to outsource back-office functions
for larger Information Technology firms.
• Logistics and Distribution. This cluster includes truck
transportation and warehousing. This cluster grew during the 2003-
2005 period, with the greatest growth in Truck Transportation.
Wages in this cluster were similar to State averages. Firms in this
cluster may be attracted to Springfield as the City’s location relative
Attachment 1-113
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 99
to other cities in the Willamette Valley and Oregon and the access
to transportation via I-5 and Highway 126.
• Medical products. This cluster includes medical and equipment
supplies manufacturing. This sector has higher than average wages
and had moderate employment growth during the 2003 to 2005
period. Firms may be attracted to Springfield as a result of firms
located in Springfield, the availability of educated workers within
the region, and the high quality of life and access to recreation in
Springfield.
• Metals and Related Products. This cluster includes metals
manufacturing, including Fabricated Metals Manufacturing and
Primary Metals Manufacturing. Although employment decreased
in this cluster over the 2003-2005 period, Lane County has the
largest cluster of Metal Wholesalers outside of the Portland
metropolitan area. Wages in this cluster were general at or above
State averages. Firms may be attracted to Springfield as a result of
existing businesses and the availability of labor.
• Processed Foods and Beverages. This cluster includes
manufacturing of food and beverages. Employment in this cluster
decreased over the 2003-2005 period and average wages in this
cluster are at or below State averages. Firms may be attracted to
Springfield as a result of the City’s proximity to food growers and
the availability of labor.
• Wood and Other Forest Products. This cluster includes wood
product manufacturing, logging, paper making, and support
activities. The average annual wage was below State averages and
employment grew slowly within the cluster over the 2003-2005
period. Firms may be attracted to Springfield as a result of the
City’s proximity to natural resources and the availability of labor.
Table A-12 shows potential growth sectors in Springfield, based on
existing concentrations of employment and the Oregon Employment
Department’s (OED) forecast for employment growth over the 2006-2016
period. Sectors with high employment concentration and high growth
forecasts are the industries most likely to grow. These sectors are: Health
and Social Assistance; Administrative and Support and Waste
Management Services; Construction; and Accommodations and Food
Services.
Springfield may have opportunities for growth in sectors that the OED
forecasts will have high growth but Springfield does not currently have
Attachment 1-114
Page 100 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
high concentrations in: Arts, Entertainment, and Recreation; Management
of Companies and Enterprises; Professional, Scientific, and Technical
Services; and Private Educational Services.
Table A-12. Potential growth of industries in Springfield
Source: Oregon Employment Department; calculations by ECONorthwest
REGIONAL BUSINESS ACTIVITY
Springfield exists within with Eugene-Springfield regional economy.
Springfield is able to attract labor from across the region, Springfield
employers and residents benefit from training opportunities present in
Eugene (e.g., the University of Oregon and Lane Community College),
and Springfield businesses and residents are effected by economic activity
within the region. This section presents the large-scale regional business
activities.
• Peace Health at RiverBend. Peace Health has built a new
hospital complex at RiverBend and will complete the transition
of staff from the University District facility to RiverBend by the
end of Sept. 2008. The RiverBend campus will have 2,500
PeaceHealth employees, in occupations including: physicians,
nurses, medical technicians, other medical staff, environmental
services staff, and food services staff. PeaceHealth started
relocating administrative and other staff to the RiverBend
Annex in 2006, which has 700 employees.
The RiverBend campus will attract additional firms. For
example, Oregon Medical Labs, Oregon Imaging Center, and
the Northwest Specialty Clinics will have approximately 350
staff and physicians at the RiverBend campus. The RiverBend
Pavilion will have about 300 employees, at the Oregon Medical
Group, Oregon Imaging, and other medical businesses.
Low Employment Growth
Projection for Lane County
High Employment Growth Projection
for Lane County
High Employment Concentration in Springfield (relative to Oregon)
Information Health Care & Social Assistance
Finance & Insurance Admin. & Support & Waste Mgt Srv.
Transportation, Warehousing & Utilities Construction
Real Estate & Rental & Leasing Accommodation & Food Srv.
Wholesale Trade
Low Employment Concentration in Springfield (relative to Oregon)
Government Arts, Entertainment, & Recreation
Other Srv.Management of Companies & Enterprises
Manufacturing Professional, Scientific, & Technical Srv.
Retail Private Educational Srv.
Agriculture, Forestry, Fishing, & Mining
Attachment 1-115
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 101
PeaceHealth plans to further develop the RiverBend campus to
include a wide range of uses: a mixture of housing types, office
and commercial support services, retail, and educational and
research functions to support collaborations with Oregon
Health Services University and the University of Oregon.
Studies for the RiverBend master plan indicated that there may
be demand for additional office development (400,000-500,000
square feet) and commercial retail services (50,000 to 70,000
square feet).
• Manufacturing. Manufacturing is important to the economy in
Springfield and in Lane County. Manufacturing accounted for
14% of employment (more than 20,000 jobs) in Lane County and
10% of employment (more than 2,700 jobs) in Springfield in
2006. 52
Manufacturing is a traded sector industry, which brings
revenue into Oregon and Lane County from outside the State.
The following manufacturing industries accounted for two-
thirds ($11 billion) of revenue from exports in Oregon in 2007:
Computer & Electronic Production, Transportation
Equipment, Machinery Manufacturers, Chemical
Manufacture, and Primary Metal Manufacturers.53 These
industries are all present in Lane County, accounting for 44%
of manufacturing employment in the County. Other export
industries with substantial employment in Lane County are:
Woods Products Manufacturing, Food Manufacturing, and
Fabricated Metal Product Manufacturing.54
o Recreational Vehicles. Lane County has a cluster of
recreational vehicles (RVs) manufacturers and retailers. Two
of Lane County’s largest manufacturers are Monaco Coach
and County Coach. Employment in RV manufacturing has
declined since 2006 as a result of declining demand for RVs
due, in part, to increases in gasoline costs. High energy costs
may continue to depress demand for RVs, at least in the next
two to five years.
52 Oregon Employment Department
53 “Economic Data Packet, Mary 2008,” Oregon Economic And Community Development Department
54 Oregon Employment Department
Attachment 1-116
Page 102 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
o Wood Products and Paper Manufacturing. Manufacturing
timber-related products has historically been a source of
employment and exports in Lane County. Employment in
these industries has declined since the 1980’s but continues to
account for more than one-quarter of manufacturing
employment in Lane County in 2006. Continued changes
create uncertainty for future employment in these industries.
For example, Weyerhaeuser, one of Lane County’s largest
employers, announced in March 2008 that it was selling
several facilities in Oregon and Lane County to International
Paper Corporation. It is unclear whether and how this sale
will impact employment in paper manufacturing.
• Call centers. The trend towards domestic outsourcing of back-
office functions has lead several companies to locate call centers
in the Eugene-Springfield area. The largest among these call
centers is Symantec, located in Springfield. Other recent call
centers to locate in the Eugene-Springfield area include Royal
Caribbean and Enterprise. The Eugene-Springfield’s trained
labor pool of relatively low-cost workers for call centers gives
the region an advantage for attracting additional call centers.
• Tourism. Tourism brings economic activity into an area from
outside sources. Tourism expenditures in Lane County in 2006
grew 7.5%, to $553 million, exceeding the statewide tourism
growth rate for the year. Tourism accounts for about 7,500 jobs
in Lane County.55
A major source of tourism spending is overnight accommodations.
In 2008, the Eugene-Springfield Region has 3,118 total rooms. Since
1997, 629 limited service hotel rooms were added. During the same
period, 377 full service rooms, 92 limited service rooms, and 15,464
square feet of meeting space have closed.56
Figure A-5 shows the hotel occupancy rate in the Eugene-
Springfield Region from fiscal year 1998 to fiscal year 2008. The
Region’s occupancy rate varied from 59% in fiscal year 2002 and
2003 to 72% in fiscal year 2006.
55 Convention & Visitors Association of Lane County Oregon, CVALCO
56 Convention & Visitors Association of Lane County Oregon, CVALCO
Attachment 1-117
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 103
Figure A-5. Hotel room occupancy rate, Eugene-Springfield
Region, Fiscal Years 1998 to 2008
Source: Convention & Visitors Association of Lane County Oregon, CVALCO
Note: 2008 data current through March 2008
Springfield levies a 9.5% transient lodging tax on overnight
accommodations. Springfield’s lodging tax rate is 9.5%. Table A-13
shows transient lodging tax revenue for Lane County and
Springfield for fiscal year 2000 through 2008. Springfield’s lodging
tax revenue varied from $1.2 million in fiscal year 2004 to $1.6
million in fiscal year 2007. Springfield’s transient lodging tax
revenues accounted for about one-quarter of total County revenues.
Table A-13. Transient lodging tax revenues, Lane County and
Springfield, Fiscal Years 2000 to 2008
Source: Convention & Visitors Association of Lane County Oregon, CVALCO
Note: 2008 data current through March 2008
• Agriculture. Agricultural production is an important
component of Lane County’s economy. In 2002, Lane County
had approximately $88 million in total gross sales from
agriculture.
0
10
20
30
40
50
60
70
80
97/98 99/00 01/02 03/04 05/06 07/08
Fiscal YearRoom Occupancy Rate Fiscal Year Lane County Springfield
2000 $4,753,583 $1,366,788 29%
2001 $4,834,210 $1,314,714 27%
2002 $4,865,320 $1,265,825 26%
2003 $4,820,662 $1,275,426 26%
2004 $5,095,869 $1,187,367 23%
2005 $5,378,361 $1,242,653 23%
2006 $6,016,364 $1,504,813 25%
2007 $6,611,718 $1,597,994 24%
2008 $5,103,490 $1,235,685 24%
Springfield's
% of County
Attachment 1-118
Page 104 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table A-14 shows the top five agricultural products in Lane County
in 1997 and 2002. Lane County’s agriculture products with the
greatest value of sales in 2002 were Nursery ($21 million) and Milk
& dairy ($10.3 million). Milk & diary had the largest average sales
value per farm ($1.1 million), nearly double the 1997 average sales
value for dairies in 1997 ($0.6 million). This change may indicate
that dairies have grown larger over the five-year period.
Other important changes are the decrease in value of sales for
poultry and eggs (down $4.2 million) cattle and calves (down $2.2
million). The decrease in sales for cattle and calves may be
explained by the decrease of 248 farms with cattle and calves.
Table A-14. Six agricultural products with the highest sales
value, Lane County 1997 and 2002
Source: USDA Census of Agriculture, 2002; Calculations by ECONorthwest
Note: The definition of the following categories of farm products changed between 1997 and 2002: Nursery,
greenhouse, floriculture, and sod; Other crops and hay; and vegetables, melons, potatoes, and sweet potatoes.
These changes prevent direct comparison between the Total Sales of these agricultural products in 1989 and
2002.
OUTLOOK FOR GROWTH IN SPRINGFIELD
Table A-15 shows the population forecast developed by the Office of
Economic Analysis for Oregon and Lane County for 2000 through 2040.
Lane County is forecast to grow at a slower rate than Oregon over the
2005 to 2030 period. The forecast shows Lane County’s population will
grow by about 96,600 people over the 25-year period, a 29% increase. Over
the same period, Oregon is forecast to grow by more than 1.2 million
people, a 35% increase.
Item
2002 Total Sales
Nursery, greenhouse, floriculture, & sod 21,001,000$ 208 100,966$
Milk & other dairy products from cows 10,290,000$ 9 1,143,333$
Cattle & calves 7,622,000$ 779 9,784$
Fruits, tree nuts, & berries 6,683,000$ 382 17,495$
Vegetables, melons, potatoes, & sweet potatoes 5,955,000$ 155 38,419$
Poultry & eggs 5,919,000$ 218 27,151$
1997 Total Sales
Poultry & eggs 10,074,000$ 144 69,958$
Cattle & calves 9,780,000$ 1,027 9,523$
Milk & other dairy products from cows 7,306,000$ 13 562,000$
Fruits, tree nuts, & berries 6,842,000$ 303 22,581$
Vegetables, melons, potatoes, & sweet potatoes NA NA NA
Nursery, greenhouse, floriculture, & sod NA NA NA
Value of
Sales Farms
Average
Value of
Sales per
Farm
Attachment 1-119
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 105
Table A-15. State population forecast,
Oregon and Lane County, 2000 to 2040
Source: Office of Economic Analysis
Note: AAGR is average annual growth rate
Table A-16 shows the Oregon Employment Department’s forecast for
employment growth by industry for Lane County over the 2006 to 2016
period. The sectors that will lead employment growth in Lane County for
the ten-year period are Health Care & Social Assistance (adding 5,600
jobs), Government (adding 3,600 jobs), Professional and Business Services
(adding 3,000 jobs), Leisure & Hospitality (adding 2,800 jobs), and Retail
Trade (adding 2,400 jobs). Together, these sectors are expected to add
17,400 new jobs or 76% of employment growth in Lane County.
Year Oregon
Lane
County
2000 3,436,750 323,950
2005 3,618,200 333,855
2010 3,843,900 347,494
2015 4,095,708 365,639
2020 4,359,258 387,574
2025 4,626,015 409,159
2030 4,891,225 430,454
2035 5,154,793 451,038
2040 5,425,408 471,511
Amount 1,273,025 96,599
% Change 35% 29%
AAGR 1.2% 1.0%
Change 2005 to 2030
Attachment 1-120
Page 106 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table A-16. Nonfarm employment forecast by industry in Lane
County, 2006-2016
Source: Oregon Employment Department. Employment Projections by Industry 2004-2014. Projections
summarized by ECONorthwest.
Note: Percent Change was calculated based on the change in employees divided by the number of employees
in 2006. For example, Retail trade’s expected percent change is 15% because 2,400 employees is 12% of the
19,700 employees in retail trade in 2006 (2400 divided by 19700 = 15%).
Sector / Industry 2006 2016 Amount % Change
Natural resources & Mining 900 900 0 0%
Construction 8,000 9,200 1,200 15%
Manufacturing 20,300 21,000 700 3%
Durable Goods 16,300 16,900 600 4%
Wood prodcut mfg.4,700 4,500 -200 -4%
Transportation equip. mfg. 4,400 4,700 300 7%
Nondurable goods 4,000 4,100 100 3%
Transportation, & utilities 3,300 3,700 400 12%
Wholesale trade 5,900 6,500 600 10%
Retail trade 19,700 22,100 2,400 12%
Information 3,700 4,100 400 11%
Financial activities 8,300 9,300 1,000 12%
Professional & business srv. 16,100 19,100 3,000 19%
Administrative & support srv. 8,200 9,700 1,500 18%
Education 1,500 1,900 400 27%
Health care & social assist. 18,100 23,700 5,600 31%
Health care 15,400 20,500 5,100 33%
Leisure & hospitality 14,200 17,000 2,800 20%
Accommodation & food srv. 12,100 14,300 2,200 18%
Food srv. & drinking places 10,700 12,700 2,000 19%
Other srv.5,100 5,700 600 12%
Government 28,400 32,000 3,600 13%
Federal government 1,800 1,700 -100 -6%
State government 11,300 13,200 1,900 17%
State education 8,700 10,200 1,500 17%
Local government 15,400 17,100 1,700 11%
Local education 8,600 9,300 700 8%
Total nonfarm employment 153,400 176,100 22,700 15%
Change 2006-2016
Attachment 1-121
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 107
Factors Affecting Future
Appendix B Economic Growth in Springfield
This appendix presents a detailed analysis consistent with the
requirements of OAR 660-009-0015(4) of Springfield’s comparative
advantage relative to the Eugene/Springfield area, Lane County,
Willamette Valley, and Oregon. The information presented in this
appendix is summarized in Chapter 3.
WHAT IS COMPARATIVE ADVANTAGE
Each economic region has different combinations of productive factors:
land (and natural resources), labor (including technological expertise), and
capital (investments in infrastructure, technology, and public services).
While all areas have these factors to some degree, the mix and condition of
these factors vary. The mix and condition of productive factors may allow
firms in a region to produce goods and services more cheaply, or to
generate more revenue, than firms in other regions.
By affecting the cost of production and marketing, comparative
advantages affect the pattern of economic development in a region
relative to other regions. Goal 9 and OAR 660-009-0015(4) recognizes this
by requiring plans to include an analysis of the relative supply and cost of
factors of production.57 An analysis of comparative advantage depends on
the geographic areas being compared. In general, economic conditions in
Springfield will be largely shaped by national and regional economic
conditions affecting the Willamette Valley. Chapter 2 and Appendix A
present trends and forecasts of conditions in Oregon and Springfield to
help establish the context for economic development in Springfield. Local
economic factors will help determine the amount and type of
development in Springfield relative to other communities in Oregon.
This appendix focuses on the comparative advantages of Springfield
relative to the rest of Oregon. The implications of the factors that
contribute to Springfield’s comparative advantage are discussed at the
end of this chapter.
57 OAR 660-009-0015(4) requires assessment of the “community economic development potential.” This assessment must
consider economic advantages and disadvantages—or what Goal 9 broadly considers “comparative advantages.”
Attachment 1-122
Page 108 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
LOCATION
Springfield is a city with a population of approximately 57,320 people in
2007, located in the Southern Willamette Valley. Interstate 5 runs to the
west of Springfield and Highway 126 runs east-west through Springfield.
Springfield is located between the Willamette River (to the south) and
McKenzie River (to the north). Springfield’s location will continue to
impact Springfield’s future economic development.
• Springfield shares a border with Eugene, the 2nd largest city in the
State of Oregon, with a population of approximately 153,690 people
in 2007. The Eugene-Springfield Metropolitan Statistical Area
(MSA), which includes all of Lane County, had more than 343,000
people in 2007, accounting for 9% of Oregon’s population.
• Springfield has easy access to the State’s highway system and other
transportation opportunities. Interstate 5 runs to the west of
Springfield and Highway 126 is the main east-west route through
Springfield. Residents and businesses in Springfield can access
other modes of transportation in Eugene, including the Eugene
Airport, Greyhound bus service, and passenger rail service.
• Residents of Springfield have easy access to shopping, cultural
activities, indoor and outdoor recreational activities, and other
amenities in Springfield, Eugene, and rural Lane County.
• Springfield residents have several opportunities for post-secondary
education: the University of Oregon, Lane Community College,
Northwest Christian College, and Gutenberg College.
Springfield’s location, access to I-5 and Highway 126, and proximity to
Eugene are primary comparative advantages for economic development
in Springfield.
BUYING POWER OF MARKETS
The buying power of Springfield and the Eugene-Springfield area forms
part of Springfield’s comparative advantage by providing a market for
goods and services. Table B-1 shows the combined total expenditures for
households in Springfield and the Eugene-Springfield Metropolitan
Statistical Area (MSA) in 2008. Households in Springfield are expected to
spend about $937 million in 2008, about 14% of total household
expenditures in the Eugene-Springfield MSA.
Attachment 1-123
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 109
Table B-1. Aggregate annual household expenditures for common
purchases, Springfield and the Eugene-Springfield Metropolitan
Statistical Area (MSA), 2008
Source: Claritas, 2008
Note: Table B-1 does not include spending on shelter or housing
Table B-2 shows average household expenditures for common purchases
in Springfield and the Eugene-Springfield MSA in 2008. Springfield
households spend an average of $42,700 on commonly purchased items,
not including housing, which typically accounts for 20% or more of
household expenditures. Springfield’s households spent less than the
regional and nation averages, with about 91% of the $47,000 average
expenditures for all households in the Eugene-Springfield MSA and 84%
of national average household expenditures.
Springfield households spent the most on miscellaneous items ($11,800),
such as personal care items, education, child care, pet care, and eating out.
Transportation accounted for 20% of Springfield household expenditures,
food at home accounted for 14%, and entertainment accounted for 11% of
expenditures. Compared to household spending for the entire MSA or the
nation, Springfield households spent a more on food at home and less on
household equipment (e.g., home furnishings and major appliances ) and
shelter-related expenses (e.g., household repairs, fuel, and telephone
service )
Apparel 78,765,734$ 548,162,423$ 14%
Entertainment 106,917,462$ 777,731,151$ 14%
Food at Home 135,808,782$ 875,120,493$ 16%
Health Care 72,511,784$ 534,882,328$ 14%
Household Equipment 48,498,974$ 367,679,233$ 13%
Shelter-Related Expenses 49,925,453$ 369,146,828$ 14%
Transportation 185,522,716$ 1,304,243,991$ 14%
Miscellaneous Items 259,702,794$ 1,890,881,821$ 14%
Total 937,653,699$ 6,667,848,268$ 14%
Springfield
Eugene/
Springfield MSA
Springfield %
of MSA
Spending
Attachment 1-124
Page 110 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table B-2. Average annual household expenditures for common purchases,
Springfield and the Eugene-Springfield Metropolitan Statistical Area (MSA), 2008
Source: Claritas, 2008
Note: Table B-2 does not include spending on shelter or housing, which typically accounts for 20% or more of household
expenditures.
Note: The Percent of Total does not add to 100% as a result of rounding errors.
AVAILABILITY OF TRANSPORTATION FACILITIES
Businesses and residents in Springfield have access to a variety of modes
of transportation: automotive (Interstate 5, multiple State highways, and
local roads); rail (Union Pacific and Amtrak); transit (LTD); and air
(Eugene Airport).
Springfield has excellent automotive access for commuting and freight
movement. Springfield is located along Interstate 5, the primary north-
south transportation corridor on the West Coast, linking Springfield to
domestic markets in the United States and international markets via West
Coast ports. Springfield has developed along Highway 126, connecting
Springfield to rural areas to the East of Springfield. Highway 126 is the
primary east-west highway in Lane County, running from Florence to
Redmond. Businesses and residents of Springfield also have access to
Highway 99 in Eugene and Highway 58 in Pleasant Hill.
Other transportation options in Springfield are:
• Rail. Multiple Union Pacific rail lines serve Springfield, providing
freight service. There are two primary junctions in Springfield: (1)
the Springfield Junction is located in the Glenwood area in
Southwest Springfield and (2) the Mohawk Junction is near the
city’s southern boundary, near 25th St.
• Transit. The Lane Transit District (LTD) provides transit service to
the Eugene-Springfield region. LTD serves Springfield with
multiple bus lines, providing bus service within Springfield and
Expenditures % of Total E/S MSA U.S
Apparel 3,589$ 8% 3,869$ 93% 77%
Entertainment 4,871$ 11% 5,490$ 89% 84%
Food at Home 6,187$ 14% 6,177$ 100% 98%
Health Care 3,304$ 8% 3,775$ 88% 77%
Household Equipment 2,210$ 5% 2,595$ 85% 76%
Shelter-Related Expenses 2,275$ 5% 2,606$ 87% 75%
Transportation 8,452$ 20% 9,206$ 92% 90%
Miscellaneous Items 11,832$ 28% 13,347$ 89% 80%
Total 42,720$ 100% 47,065$ 91% 84%
Eugene/
Springfield
MSA
Springfield Households
Springfield's Expenditures
Compared to:
Attachment 1-125
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 111
connecting Springfield with Eugene. LTD recently began operating
a bus rapid transit (BRT) system, called EmX, which provides
service between Springfield Station and Eugene Station.
Construction is underway for the new Pioneer Parkway BRT route,
which will connect to the Sacred Heart Medical Center, and the
Gateway Mall.
• Air. The Eugene Airport provides both passenger and freight
service for Eugene and Springfield residents. The airport is the
second busiest in the state, and the fifth largest in the Pacific
Northwest. The airport is served by five commercial airlines, and is
the primary airport for a six county region.
Transportation is a comparative advantage that primarily affects the
overall type of employment and its growth for the region.
PUBLIC FACILITIES AND SERVICES
Provision of public facilities and services can impact a firm’s decision on
location within a region but ECO’s past research has shown that
businesses make locational decisions primarily based on factors that are
similar with a region. These factors are: the availability and cost of labor,
transportation, raw materials, and capital. The availability and cost of
these production factors are usually similar within a region.
Once a business has chosen to locate within a region, they consider the
factors that local governments can most directly affect: tax rates, the cost
and quality of public services, and regulatory policies. Economists
generally agree that these factors do affect economic development, but the
effects on economic development are modest. Thus, most of the strategies
available to local governments have only a modest affect on the level and
type of economic development in the community.
PUBLIC POLICY
Public policy can impact the amount and type of economic growth in a
community. The City can impact economic growth through its policies
about the provision of land, redevelopment, and infill development.
Success at attracting or retaining firms may depend on availability of
attractive sites for development, especially large sites. For example,
Springfield was attractive as a location of PeaceHealth’s new hospital
because the City had a large, relatively flat site located relatively near to
Interstate 5 and Beltline Highway.
Springfield’s decisionmakers articulated their support for provision of
employment land through the economic development strategy and in
Attachment 1-126
Page 112 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
other policy choices. Objectives in the economic development strategy
supporting the provision of employment land include objectives to: (1)
provide employment land in a variety of locations, configurations, and
site sizes for industrial and other employment uses, (2) provide an
adequate competitive short-term supply of suitable land to respond to
economic development opportunities as they arise, (3) reserve sites over
20-acres for special developments and industries that require large sites,
and (4) provide adequate infrastructure to sites.
The economic development strategy also includes objectives that support
redevelopment of existing land within the UGB, especially in Downtown
and in Glenwood, and other infill development opportunities. In addition,
the City has established financial mechanisms to support redevelopment
through the creation of the Glenwood Urban Renewal District and
Downtown Urban Renewal District.
TAX POLICY
The tax policy of a jurisdiction is a consideration in economic
development policy. Table B-3 shows that Springfield’s property tax rate
is between $16.32 and $18.65 per $1,000 of assessed value, compared with
a state average of $15.20. The property tax rate in Eugene is more variable
than Springfield’s, ranging from $10.31 to $24.68 per $1,000 of assessed
value. 58
Table B-3. Property tax rate per
$1,000 assessed value for Springfield,
Eugene, and Oregon, 2007.
Source: Oregon Department of Revenue
WATER
Springfield’s water provider is the Springfield Utility Board (SUB).
Springfield’s primary source of water is wells, supplemented by surface
water from the Middle Fork of the Willamette River. Springfield has 33
58 Property tax rates for Springfield and Eugene are a composite of the rates for all properties with an address in Eugene or
Springfield. It is almost certain that some of these properties is located outside of both the Eugene and Springfield urban
growth boundaries and are subject to unincorporated Lane County tax rates.
Area
Tax Rate
(per $1,000
assessed value)
Oregon $15.20
Lane County $15.47
Springfield $16.32 - $18.65
Eugene $10.31 - $24.68
Attachment 1-127
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 113
wells in 7 well fields, which provide the majority of Springfield’s water.
SUB has purchased rights to water from the McKenzie River, to supply
future need for water.
Springfield’s water treatment plant is located on the Middle Fork of the
Willamette River, which provides water treatment for the city. The water
treatment plant is at or near capacity, with peak summer residential and
commercial irrigation demands exceeding the plant’s capacity at times.
SUB is addressing peak demands by educating customers peak shifting,
the practice of irrigating landscaping in the evening or at night.
SUB is planning upgrades to the water treatment plant in 2008 and 2009 to
address issues meeting demand at peak times. SUB is also planning
upgrades double the plant’s capacity in 2010. Springfield plans to build
two additional water treatment plants on the McKenzie River, as demand
for water increases. SUB expects to need the new treatment plants by 2013
to 2018.
SUB has sufficient water to meet expected growth and be able to meet
residential and employment needs. SUB is not concerned about its ability
to supply water to any type of industry, including water-intensive
industries like food processing. SUB has lower water rates than the
national average. The combination of available and lower cost water may
be an advantage to attracting some types of businesses to Springfield.
WASTEWATER
Springfield’s wastewater services are provided by Metropolitan
Wastewater Management Commission (MWMC), which operates a
wastewater facility that serves Springfield, Eugene, and Lane County.
Springfield’s wastewater system, which includes the sanitary sewer and
other equipment, is managed by Springfield Public Works.
Springfield is about to meet current wastewater demands, except in
instances of heavy rainfall. On dry days, Springfield generates about 6
million gallons of wastewater per day. During heavy rainfall, Springfield
can generate 100 million gallons of wastewater per day, as a result of
infiltration and inflow into wastewater pipes.
Springfield recently completed an update of the Wastewater Master Plan,
which identified $65 million of upgrades to the system, which will
provide service to unserviced areas in Springfield and address problems
with infiltration and inflow into wastewater pipes.
Springfield expects to be able to meet expected growth. The City expects
to provide service to 6,100 new equivalent dwelling units, which includes
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residences and businesses, over the next 20 years. If Springfield needs to
expand its urban growth boundary, the City will need to plan how to
provide service to the new areas.
LABOR MARKET FACTORS
The availability of labor is critical for economic development. Availability
of labor depends not only on the number of workers available, but the
quality, skills, and experience of available workers as well. This section
examines the availability of workers for Springfield.
The labor force in any market consists of the adult population (16 and
over) who are working or actively seeking work. The labor force includes
both the employed and unemployed. Children, retirees, students, and
people who are not actively seeking work are not considered part of the
labor force. According to the 2000 Census, Lane County has more than
166,000 people in its labor force, with 16% of the County’s labor force
located in Springfield (27,000 participants in the labor force).
The unemployment rate is one indicator of the relative number of workers
who are actively seeking employment. Labor force data from the Oregon
Employment Department shows that unemployment in Lane County 6.1%
in February 2008, lower than the State average of 6.3%. Figure B-1 shows
the unemployment rate for Lane County, Oregon, and the United States
for the past decade. During this period, Lane County’s unemployment has
been very similar to the statewide unemployment rate. The County and
State unemployment rates have been consistently higher than the national
average, but the difference has decreased in recent years.
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 115
Figure B-1. Unemployment rates for Lane County, Oregon, and the
U.S., January 1998 to February 2008
Source: Bureau of Labor Statistics
Note: unemployment data is not seasonally adjusted
Another important factor in the labor force is the distance that workers are
willing to commute. Figure B-2 shows a comparison of the commute time
to work for residents 16 years and older for Oregon, Lane County,
Eugene, and Springfield in 2008.
Springfield residents were more likely to have a commute of between 15
and 29 minutes than residents of the State, County, or Eugene. About 46%
of Springfield residents commute 15 to 29 minutes, compared with the
36% of State residents, 39% of County residents, and 38% of Eugene’s
residents.
U.S.Oregon Lane County
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Figure B-2. Commuting time to work in minutes for residents 16
years and older, Oregon, Lane County, Eugene, and Springfield, 2008
Source: Claritas 2008
Figure B-3 and Table B-4 show where residents of Springfield work in
2004. Figure B-3 and Table B-4 show that 81% of Springfield’s residents
were employed in Lane County, with 40% of Springfield’s residents
working in Eugene and 25% working in Springfield. Close to 1,000
Springfield workers (4%) commute to Multnomah County, the majority of
who work in Portland.
0% 10% 20% 30% 40% 50%
Worked at home
Less than 15
15-29
30-44
45-59
60 or more
Travel Time to Work (minutes)Percent of Population Age 16+
Oregon Lane County Springfield Eugene
Attachment 1-131
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 117
Figure B-3. Places that residents of Springfield were employed, 2004
Source: U.S. Census Bureau: LED on the Map
Table B-4. Places that residents of
Springfield were employed, 2004
Source: U.S. Census Bureau: LED on the Map
Figure B-4 and Table B-5 show where employees of firms located in
Springfield lived in 2004. Seventy-nine percent of Springfield’s workers
lived in Lane County. Twenty-nine percent lived in Springfield, and 23%
lived in Eugene. About 27% of Springfield’s workers lived in
unincorporated areas of Lane County and 21% lived outside of Lane
County.
Location Number Percent
Lane County 18,649 81%
Eugene 9,261 40%
Springfield 5,675 25%
Coburg 638 3%
Junction City 475 2%
Multnomah Co.975 4%
Portland 839 4%
All Other Locations 3,385 15%
Total 23,009 100%
Attachment 1-132
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Figure B-4. Places where workers in Springfield lived, 2004
Source: U.S. Census Bureau: LED on the Map
Table B-5. Places where workers
in Springfield lived, 2004
Source: U.S. Census Bureau: LED on the Map
Educational attainment is an important labor force factor because firms
need to be able to find educated workers. Figure B-5 shows the share of
population by education level completed in Springfield and Lane County
in 2007. In 2007, Springfield had a smaller share of residents with an
associate’s degree or higher (26%) than residents of Lane County (37%). In
comparison, 47% of Eugene’s residents have an associate’s degree or
higher.
Location Number Percent
Lane County 15,341 79%
Springfield 5,675 29%
Eugene 4565 23%
All Other Locations 4,112 21%
Linn County 537 3%
Marion County 428 2%
Jackson County 409 2%
Other locations 2,738 14%
Total 19,453 100%
Attachment 1-133
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 119
Figure B-5. Educational attainment for the population 25 years and
over, Oregon, Lane County, and Springfield, 2007
Source: OregonProspector.com
Opportunities for workforce training and post-secondary education for
residents of the Eugene-Springfield area include: the University of
Oregon, Lane Community College, Northwest Christian College, and
Gutenberg College.
Table B-6 shows changes in ethnicity Oregon, Lane County, and
Springfield between 1990, 2000, and 2008. This table shows that the
Springfield has a larger share of Hispanic or Latino residents than Lane
County 2000, with 6.6% of residents in Springfield were Hispanic
compared to the County average of 4.6%. Between 1990 and 2000,
Springfield’s Hispanic and Latino population grew by 168% (2,176
people), compared with growth in the Hispanic and Latino population of
117% in Lane County and 144% in Oregon.
In 2008, Hispanic residents accounted for about 11% of Oregon’s
population and 6% of Lane County’s population. Springfield’s Hispanic
population grew by 95% between 2000 and 2008, more than twice the rate
of growth for the County or State during the same period.
0% 5% 10% 15% 20% 25% 30% 35%
Less than 9th grade
9th to 12th grade,
no diploma
High school graduate
(includes equivalency)
Some college,
no degree
Associate degree
Bachelor's degree
Graduate or
professional degree
Educational AttainmentPercent of Population Age 25+
Lane County Springfield
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Table B-6. Changes in ethnicity, Oregon, Lane County, and
Springfield, 1990, 2000, and 2008
Source: U.S. Census 1990 and 2000, Claritas 2008
Commuting is common in Springfield. About 40%of the people who live
in Springfield commute to Eugene for work. Less than one-third of
Springfield’s workers live in Springfield. The implication of this workforce
analysis is that, while only one-third of Springfield’s workforce lives
within the City, Springfield are able to attract educated workers from
most of Eugene and surrounding areas in Lane county.
It does not appear that workforce will be a constraint on employment
growth in Springfield. Springfield should be able to continue to draw on
residents of Eugene for workers, even if energy prices continue to rise but
Springfield’s ability to attract workers from outside of the Eugene-
Springfield area may be negatively impacted by continued increases in
energy prices.
Oregon Lane County Springfield
1990
Total Population 2,842,321 282,912 44,683
Hispanic or Latino 112,707 6,852 1,299
Percent Hispanic or Latino 4.0% 2.4% 2.9%
2000
Total Population 3,421,399 322,959 52,729
Hispanic or Latino 275,314 14,874 3,475
Percent Hispanic or Latino 8.0% 4.6% 6.6%
2008
Total Population 3,772,854 343,961 56,016
Hispanic or Latino 400,435 20,941 5,293
Percent Hispanic or Latino 10.6% 6.1% 9.4%
Change 1900-2000
Hispanic or Latino 162,607 8,022 2,176
Percent Hispanic or Latino 144% 117% 168%
Change 2000-2008
Hispanic or Latino 125,121 6,067 1,818
Percent Hispanic or Latino 45% 41% 52%
Attachment 1-135
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 121
Employment Forecast and
Site Needs for Industrial
Appendix C and other Employment Uses
This appendix presents a detailed analysis of Springfield’s site needs
consistent with the requirements of OAR 660-009-0015(2) and of OAR 660-
009-0025(1). This appendix includes an employment forecast and an
analysis of site needs to accommodate industrial and other employment
uses in Springfield for the 2010 to 2030 period. The information presented
in this appendix is summarized in Chapter 4.
EMPLOYMENT FORECAST
To provide for an adequate supply of commercial and industrial sites
consistent with plan policies, Springfield needs an estimate of the amount
of commercial and industrial land that will be needed over the planning
period. Goal 9 requires cities identify “the number of sites by type
reasonably expected to be needed to accommodate the expected
employment growth based on the site characteristics typical of expected
uses.” The number of needed sites is dependent on the site requirements
of employers. The estimate of land need is presented in the site needs
analysis in the next section.
Demand for commercial and industrial land will be driven by the
expansion and relocation of existing businesses and new businesses
locating in Springfield. The level of this business expansion activity can be
measured by employment growth in Springfield. This section presents a
projection of future employment levels in Springfield for the purpose of
estimating demand for commercial and industrial land.
The projection of employment has three major steps:
1. Establish base employment for the projection. We start with
the estimate of covered employment in Springfield’s UGB
presented in Chapter 3. Covered employment does not include
all workers, so we adjust covered employment to reflect total
employment in Springfield.
2. Project total employment. The projection of total employment
will be calculated using the safe harbor method suggested in
OAR 660-024.
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3. Allocate employment. This step involves allocating
employment to different building types, based on similar
requirements for built space.
EMPLOYMENT BASE FOR PROJECTION
To forecast employment growth in Springfield, we must start with a base
of employment growth on which to forecast. Table C-1 shows ECO’s
estimate of total employment in the Springfield UGB in 2006. To develop
the figures, ECO started with estimated covered employment in the
Springfield UGB from confidential QCEW (Quarterly Census of
Employment and Wages) data provided by the Oregon Employment
Department.
Covered employment, however, does not include all workers in an
economy. Most notably, covered employment does not include sole
proprietors. Analysis of data shows that covered employment reported by
the Oregon Employment Department for Lane County is only about 74%
of total employment reported by the U.S. Department of Commerce. We
made this comparison by sector for Lane County and used the resulting
ratios to convert covered employment to total employment in Springfield.
Table C-1 shows Springfield had an estimated 36,706 employees within its
UGB in 2006. This figure results in a population-to-employment ratio of
1.7 persons per employee. The statewide average is about 1.9 persons per
employee.
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 123
Table C-1. Estimated total employment in the Springfield UGB by
sector, 2006
Source: 2005 covered employment from confidential Quarterly Census of Employment and Wage (QCEW) data
provided by the Oregon Employment Department. Covered employment as a percent of total employment
calculated by ECONorthwest using data for Lane County employment from the U.S. Department of Commerce,
Bureau of Economic Analysis (total) and the Oregon Employment Department (covered).
The employment forecast covers the 2010 to 2030 period, requiring an
estimate of total employment for Springfield in 2008. Since 2006,
Springfield has had one major change in employment, beyond expected
employment growth: PeaceHealth has built a new regional medical center
at RiverBend. PeaceHealth estimates that there will be approximately
3,400 new employees in Springfield in 2008 as a result of the hospital at
RiverBend.
ECO estimates that Springfield has 37,733 employees in 2008, plus the
3,400 employees at RiverBend. The result is an employment base of 41,133
total employees in Springfield in 2008.
EMPLOYMENT PROJECTION
OAR 660-024-0040 (8) (a) (A) allows the City to determine employment
land needs based on “The county or regional job growth rate provided in
the most recent forecast published by the Oregon Employment
Department.” Springfield is part of Region 5, which includes all of Lane
County. Based on this safe harbor, employment in Springfield can be
assumed to grow at 1.4% annually. Table C-2 shows the result of applying
Sector Number
% of Total
Emp.
Agriculture, Forestry, Fishing, & Mining 282 73% 387
Construction 1,922 65% 2,973
Manufacturing 2,714 99% 2,750
Wholesale Trade 1,230 85% 1,446
Retail 3,632 79% 4,609
Transportation & Warehousing & Utilities 941 70% 1,349
Information 1,356 79% 1,710
Finance & Insurance 1,110 66% 1,673
Real Estate & Rental & Leasing 441 33% 1,341
Professional, Scientific, & Technical Services 576 52% 1,107
Management of Companies & Enterprises 343 97% 354
Admin. & Support & Waste Mgt Services 2,460 76% 3,239
Private Educational Services 109 38% 290
Health Care & Social Assistance 3,069 77% 4,008
Arts, Entertainment, & Recreation 321 41% 777
Accommodation & Food Services 2,453 91% 2,686
Other Services 816 48% 1,685
Government 3,535 82% 4,322
Total 27,310 74% 36,706
Estimated
Total
Employment
Covered Employment
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this growth rate to the total employment base of 41,133 in Springfield.
Table C-2 shows that employment is forecast to grow by 13,440 employees
(a 32% increase) between 2010 and 2030.
Table C-2. Employment growth in
Springfield’s UGB, 2010–2040
Source: ECONorthwest
Springfield is part of the regional economic center in the Eugene-
Springfield region. The ratio of population to employment will decrease
from 1.6 to 1.5 people per job between 2010 and 2030. This change shows
that employment will grow faster than population in Springfield,
suggesting that some Springfield will continue to have employees who
commute from Eugene or other cities in the region.
ALLOCATE EMPLOYMENT TO DIFFERENT BUILDING TYPES
The next step in the employment forecast is to allocate future employment
to building type, as described in Table A-8 in Appendix A. The allocation
was done by grouping employment into building types with similar
building and site requirements. For example, the following service sectors
were grouped together into the “office” building type because they need
similar types of built space with similar site requirements: information,
finance, real estate, professional services, management of companies,
administrative support, utilities, arts and entertainment, and other
services.
Year
Total
Employment
2008 41,133
2010 42,284
2030 55,724
2030 55,724
2031 56,498
2032 57,283
2033 58,079
2034 58,886
2035 59,704
2036 60,534
2037 61,375
2038 62,228
2039 63,093
2040 63,970
Change 2010 to 2030
Employees 13,440
Percent 32%
AAGR 1.4%
Attachment 1-139
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Table C-3 shows the forecast of employment growth by building type in
Springfield’s UGB in 2030. Table C-3 shows the amount of employment by
building type in 2010. In 2010, a total of about 60% of Springfield’s
employment is in office and other services’ building types. About 18% is
in retail, 15% is in general industrial and 7% is in warehousing and
distribution.
Table C-3. Forecast of employment growth in by building type,
Springfield UGB, 2010–2030
Source: ECONorthwest
Note: Green shading denotes an assumption by ECONorthwest
The forecast in Table C-3 assumes that Springfield will have growth in all
categories of employment. It also assumes that the share of employment
will increase in other services (2.2% increase in share) and office (1.3%
increase in share). At the same time, the share of employment will
decrease in general industrial (1.8% decrease in share), warehousing and
distribution (1.0% decrease in share), and retail (0.7% decrease in share).
In terms of jobs, employment will increase in all of these sectors.
The assumptions about the changes in share of all employment are based
on the following considerations:
• Increase in the share of employment in office and other services.
Springfield’s target industries are predominantly office and other
services, such as medical services, services for seniors, call centers,
back office functions, high tech, professional services, corporate
headquarters, and other services. The forecast assumes that these
industries will grow faster than other employment in Springfield.
• Decrease in employment in other categories. The decreases in
employment in other categories is based on the following factors:
o While Springfield expects that general industrial will grow,
the City expects industrial employment will grow slower
than all employment in the City. This expectation is based
Building Type Employment
% of
Total Employment
% of
Total
Industrial
Warehousing & Distribution 2,954 7.0% 3,343 6.0% 389
General Industrial 6,457 15.3% 7,523 13.5% 1,066
Commercial
Office 12,561 29.7% 17,274 31.0% 4,713
Retail 7,709 18.2% 9,752 17.5% 2,043
Other Services 12,603 29.8% 17,832 32.0% 5,229
Total 42,284 100.0% 55,724 100.0% 13,440
2010 2030 Change
2010 to
2030
Attachment 1-140
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on the target industries that Springfield has identified and
the Oregon Employment Department’s forecast for
employment growth in Lane County for 2006 to 2016.
o Springfield expects that employment in warehousing and
distribution will grow but slower than all employment
because Springfield is at a disadvantage for siting
warehouse and distribution firms. These firms need sites
that have easy access to I-5 and flat sites of 20 or more acres.
There are relatively few sites in or around Springfield that
meet these criteria.
o Employment in retail will grow with population. Springfield
expects that retail will grow slightly slower than all
employment. This assumption is based on the expectation
that Springfield’s target industries will grow faster than
overall employment growth, including retail employment.
It is worth noting that the employment projections in this appendix do not
take into account a major jump in employment that could result from the
location of one or more large employers in the community during the
planning period. This could take place if the City were successful in its
recruitment efforts, either on its own and/or in conjunction with the
Governors Initiative to bring new industry to the State. PeaceHealth and
Symantec are examples of such events. Such a major change in the
community’s employment would essentially be over and above the
growth anticipated by the City’s employment forecast and the implied
land needs (for employment, but also for housing, parks and other uses).
Major economic events such as the successful recruitment of a very large
employer are very difficult to include in a study of this nature. The
implications, however, are relatively predictable: more demand for land
(of all types) and public services.
SITE NEEDS
OAR 660-009-0015(2) requires the EOA identify the number of sites, by
type, reasonably expected to be needed for the 20-year planning period.
Types of needed sites are based on the site characteristics typical of
expected uses. The Goal 9 rule provides flexibility in how jurisdictions
conduct and organize this analysis. For example, site types can be
described by plan designation (i.e., heavy or light industrial), they can be
by general size categories that are defined locally (i.e., small, medium, or
large sites), or it can be industry or use-based (i.e., manufacturing sites or
distribution sites).
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Firms wanting to expand or locate in Springfield will be looking for a
variety of site and building characteristics, depending on the industry and
specific circumstances. Previous research conducted by ECO has found
that while there are always specific criteria that are industry-dependent
and specific to a firm, many firms share at least a few common site
criteria. In general, all firms need sites that are relatively flat, free of
natural or regulatory constraints on development, with good
transportation access and adequate public services. The exact amount,
quality, and relative importance of these factors vary among different
types of firms. This section discusses the site requirements for firms in
industries with growth potential in the Eugene-Springfield Region, as
indicated by the Oregon Employment Department forecast shown in
Table A-12.
FACTORS THAT AFFECT LOCATIONAL DECISIONS
Why do firms locate where they do? There is no single answer—different
firms choose their locations for different reasons. Key determinates of a
location decision are a firm’s factors of production. For example, a firm that
spends a large portion of total costs on unskilled labor will be drawn to
locations where labor is relatively inexpensive. A firm with large energy
demands will give more weight to locations where energy is relatively
inexpensive. In general, firms choose locations they believe will allow
them to maximize net revenues: if demand for goods and services is held
roughly constant, then revenue maximization is approximated by cost
minimization.
The typical categories that economists use to describe a firm’s production
function are:
• Labor. Labor is often and increasingly the most important factor of
production. Other things equal, firms look at productivity—labor
output per dollar. Productivity can decrease if certain types of labor
are in short supply, which increases the costs by requiring either
more pay to acquire the labor that is available, the recruiting of
labor from other areas, or the use of the less productive labor that is
available locally. Based on existing commuting patterns,
Springfield has access to labor from the Eugene-Springfield Region.
• Land. Demand for land depends on the type of firm.
Manufacturing firms need more space and tend to prefer suburban
locations where land is relatively less expensive and less difficult to
develop. Warehousing and distribution firms need to locate close to
interstate highways.
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Page 128 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
• Local infrastructure. An important role of government is to
increase economic capacity by improving quality and efficiency of
infrastructure and facilities, such as roads, bridges, water and
sewer systems, airport and cargo facilities, energy systems, and
telecommunications.
• Access to markets. Though part of infrastructure, transportation
merits special attention. Firms need to move their product, either
goods or services, to the market, and they rely on access to different
modes of transportation to do this. Springfield’s access to I-5 and
Highway 126 provide the City with advantages in attracting
businesses that need easy access to highways but do not need to
ship large volumes of freight by truck.
• Materials. Firms producing goods, and even firms producing
services, need various materials to develop products that they can
sell. Some firms need natural resources: lumber manufacturing
requires trees. Or, farther down the line, firms may need
intermediate materials: for example, dimensioned lumber to build
manufactured housing.
• Entrepreneurship. This input to production may be thought of as
good management, or even more broadly as a spirit of innovation,
optimism, and ambition that distinguishes one firm from another
even though most of their other factor inputs may be quite similar.
The supply, cost, and quality of any of these factors obviously depend on
market factors: on conditions of supply and demand locally, nationally,
and even globally. But they also depend on public policy. In general,
public policy can affect these factors of production through:
• Regulation. Regulations protect the health and safety of a
community and help maintain the quality of life. Overly
burdensome regulations, however, can be a disincentive for
businesses to locate in a community. Simplified bureaucracies and
straightforward regulations can reduce the burden on businesses
and help them react quickly in a competitive marketplace.
• Taxes. Firms tend to seek locations where they can optimize their
after-tax profits. Studies show that tax rates are not a primary
location factor within a region—they matter only after businesses
have made decisions based on labor, transportation, raw materials,
and capital costs. The cost of these production factors is usually
similar within a region. Therefore, differences in tax levels across
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Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 129
communities within a region are more important in the location
decision than are differences in tax levels between regions.
• Financial incentives. Governments can offer firms incentives to
encourage growth. Studies have shown that most types of financial
incentives have had little significant effect on firm location between
regions. For manufacturing industries with significant equipment
costs, however, property or investment tax credit or abatement
incentives can play a significant role in location decisions.
Incentives are more effective at redirecting growth within a region
than they are at providing a competitive advantage between
regions.
This discussion may suggest that a location decision is based entirely on a
straight-forward accounting of costs, with the best location being the one
with the lowest level of overall costs. Studies of economic development,
however, have shown that location decisions depend on a variety of other
factors that indirectly affect costs of production. These indirect factors
include agglomerative economies (also known industry clusters), quality
of life, and innovative capacity.
• Industry clusters. Firms with similar business activities can realize
operational savings when they congregate in a single location or
region. Clustering can reduce costs by creating economies of scale
for suppliers. For this reason, firms tend to locate in areas where
there is already a presence of other firms engaged in similar or
related activities.
• Quality of life. A community that features many quality amenities,
such as access to recreational opportunities, culture, low crime,
good schools, affordable housing, and a clean environment can
attract people simply because it is a nice place to be. A region’s
quality of life can attract skilled workers, and if the amenities lure
enough potential workers to the region, the excess labor supply
pushes their wages down so that firms in the region can find skilled
labor for a relatively low cost. The characteristics of local
communities can affect the distribution of economic development
within a region, with different communities appealing to different
types of workers and business owners. Sometimes location
decisions by business owners are based on an emotional or
historical attachment to a place or set of amenities, without much
regard for the cost of other factors of production.
• Innovative capacity. Increasing evidence suggests that a culture
promoting innovation, creativity, flexibility, and adaptability is
Attachment 1-144
Page 130 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
essential to keeping U.S. cities economically vital and
internationally competitive. Innovation is particularly important in
industries that require an educated workforce. High-tech
companies need to have access to new ideas typically associated
with a university or research institute. Innovation affects both the
overall level and type of economic development in a region.
Government can be a key part of a community’s innovative culture,
through the provision of services and regulation of development
and business activities that are responsive to the changing needs of
business.
Table C-4 provides a summary of production factors in Springfield as well
as comments on local opportunities and constraints. It also discusses
implications of each factor for future economic development in
Springfield.
Attachment 1-145
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 131 Table C-4. Summary of production factors and their implications for Springfield Category Opportunities Challenges Implications Labor • Access to labor from the across the Eugene-Springfield Region • Existing workforce has lower educational attainment than regional averages • Potential difficulty in finding dependable labor for manufacturing jobs The City has access to labor from the region. As the City adds more high-end, expensive houses, the City is likely to attract a more educated workforce. Commuting patterns may be negatively impacted by increases in energy prices. The impact is likely to be less in the immediate Eugene-Springfield area but is likely to be greater for commuters that live further from Eugene and Springfield. Land • Opportunities for redevelopment and infill development, especially in Downtown and Glenwood • Lack of large parcels of land near highways • Cost of land • Short-term availability Firms that prefer large, undeveloped parcels near highways are unlikely to locate in Springfield under current conditions, such or manufacturers that require freight access. Local infrastructure • Proximity to I-5 and Highway 126 and availability of freight shipping by rail • Opportunities for transportation via transit, bicycle, and pedestrian • Capacity of water and wastewater systems • Cost of providing infrastructure Springfield has sufficient local infrastructure to attract and retain businesses. Access to markets • Proximity to I-5 and Highway 126 and availability of freight shipping by rail • Proximity to Eugene Airport for transportation of people and small quantities of goods • Lack of sites with good transportation access, especially to I-5 Springfield’s highway and rail access is sufficient to attract firms that need access to markets via highways. Springfield is relatively unlikely to attract firms that need to move large quantities of freight via trucks on I-5. Materials • Proximity to natural resources (e.g., timber or agricultural products) • Access to multiple rail lines • Cost of shipping raw and finished products Springfield may be attractive to manufacturers that need access to natural resources. However, firms dependant on highway access to transport large quantities of materials may not locate in Springfield until infrastructure needs are addressed. Attachment 1-146
Page 132 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis Category Opportunities Challenges Implications Entrepreneurship • Proximity of the University of Oregon • Quality of life • Springfield’s image as having a “blue collar” business environment. Springfield may be attractive to entrepreneurs who value the City’s quality of life attributes, access to outdoor recreation, and other locational attributes. Springfield has opportunities to encourage entrepreneurship through continued improvement of the City’s image and through attracting more professional jobs, such as the developing medical cluster. Regulation • Pro-business attitudes among City officials and leaders • Ability to craft regulations that are conducive to business • High Systems Development Charges (SDCs) The City has the opportunity to develop a regulatory framework that can promote economic activity through economic development policies, plans for providing infrastructure, and provision of a variety of housing types. Taxes • Property taxes are comparable to Eugene • Comparatively high System Development Charges (SDCs) Springfield needs revenue sources for providing public services and infrastructure, just as other cities do. The City has options about how to raise these funds: through property taxes, development fees, and other fees to taxes. Industry clusters • Presence of a developing medical cluster and existing call center cluster • Opportunities for development of other clusters • Availability of sites • Transportation access • Labor availability Springfield may be able to build employment in existing clusters, especially the developing medical cluster. Springfield has opportunities to develop other clusters, such as high-tech or small scale manufacturing. Quality of life • High quality of life, including access to recreation, proximity to cultural amenities in Eugene, regional shopping opportunities and environmental quality • Growth management challenges, such as balancing development with protection of environmental quality Springfield’s policy choices will affect the City’s quality of life, such as decisions regarding development of natural areas, housing policies, or policies that lead to redevelopment of downtown. Attachment 1-147
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 133 Category Opportunities Challenges Implications Innovative capacity • Educated regional workforce • Existing professional and business service firms • Proximity to the University of Oregon • Existing businesses, clusters, and innovators in the Region • Attracting and retaining good workers in the region • Availability of higher-end housing and cultural amenities to attract creative class workers Government can be a key part of a community’s innovative culture, through the provision of services and regulation of development and business activities that are responsive to the changing needs of business. Attachment 1-148
Attachment 1-149
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 135
CHARACTERISTICS OF SITES NEEDED TO ACCOMMODATE
EMPLOYMENT GROWTH
Table C-5 summarizes the lot sizes typically needed for firms in selected
industries. The emphasis in Table C-5 is on new large firms that have the
most potential to generate employment growth. For example, while the
number of convenience stores in the region is likely to grow, the site needs
for these stores is not included in Table C-5 because they are unlikely to
generate substantial employment growth. Large food stores, which are
typically 50,000 to 100,000 sq. ft. in size, are more likely to generate
substantial employment growth in the region, and these stores require
sites of 5 to 10 acres.
Table C-5. Typical lot size requirements for
firms in selected industries
Source: ECONorthwest.
More specific site needs and locational issues for firms in potential growth
industries include a range of issues. Table C-6 summarizes site needs and
key issues related to sites in Springfield.
Industry Lot Size (acres)
Manufacturing
Printing & Publishing 5 - 10
Stone, Clay & Glass 10 - 20
Fabricated Metals 10 - 20
Industrial Machinery 10 - 20
Electronics - Fab Plants 50 - 100
Electronics - Other 10 - 30
Transportation Equipment 10 - 30
Transportation & Wholesale Trade
Trucking & Warehousing varies
Retail Trade
General Merchandise & Food Stores 5-10
Eating & Drinking Places 0.5-5
FIRE & Services
Non-Depository Institutions 1 - 5
Business Services 1 - 5
Health Services 1 - 10
Engineering & Management 1 - 5
Attachment 1-150
Page 136 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table C-6. Summary of site requirements
Site Attribute Comments
Flat sites. Flat topography (slopes with grades below
10%) is needed by almost all firms in every industry
except for small Office and Commercial firms that
could be accommodated in small structures built on
sloped sites. Flat sites are particularly important for
Industrial firms in manufacturing, trucking, and
warehousing, since these firms strongly prefer to
locate all of their production activity on one level with
loading dock access for heavy trucks.
The BLI excluded lands with slopes over
15%. Some available sites in the Glenwood
area have slopes that exceed 5% which may
be inappropriate for some employment uses.
Parcel configuration and parking. Large Industrial
and Commercial firms that require on-site parking or
truck access are attracted to sites that offer adequate
flexibility in site circulation and building layout. Parking
ratios of 0.5 to 2 spaces per 1,000 square feet for
Industrial and 2 to 3 spaces per 1,000 square feet for
Commercial are typical ratios for these firms. In
general rectangular sites are preferred, with a parcel
width of at least 200-feet and length that is at least two
times the width for build-to-suit sites. Parcel width of at
least 400 feet is desired for flexible industrial/business
park developments and the largest Commercial users.
Parcel configuration and parking do not
appear to be a constraining factor with the
city’s existing land base.
Soil type. Soil stability and ground vibration
characteristics are fairly important considerations for
some highly specialized manufacturing processes,
such as microchip fabrications. Otherwise soil types
are not very important for Commercial, Office, or
Industrial firms—provided that drainage is not a major
issue.
Soils do not appear to be a constraining factor on most
sites in Springfield. The City may want to consider
limiting development on areas such as wetlands, flood
plains, riparian corridors, wildlife areas, steep slopes
and other sensitive areas.
Road transportation. All firms are heavily dependent
upon surface transportation for efficient movement of
goods, customers, and workers. Access to an
adequate highway and arterial roadway network is
needed for all industries. Close proximity to a highway
or arterial roadway is critical for firms that generate a
large volume of truck or auto trips or firms that rely on
visibility from passing traffic to help generate business.
This need for proximity explains much of the highway
strip development prevalent in urban areas today.
Businesses in Springfield have access to I-5, Highway
126, Highway 99 (in Eugene), and Highway 58.
Springfield also has a well-developed street network
within the City. The City may need to work with large
businesses to increase automotive capacity in newly
developed areas or in areas where the intensity of
employment uses increase substantially.
Rail transportation. Rail access can be very
important to certain types of heavy industries. The
region has good rail access to many industrial sites.
Springfield is served by multiple Union Pacific rail
lines. There are two primary junctions in Springfield:
(1) the Springfield Junction is located in the Glenwood
area in Southwest Springfield and (2) the Mohawk
Junction is near the city’s southern boundary, near 25th
St.
Air transportation. Proximity to air transportation is
important for some firms engaged in manufacturing,
finance, or business services.
Springfield is located 15 miles from the Eugene
Airport.
Attachment 1-151
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 137
Site Attribute Comments
Transit. Transit access is most important for
businesses in Health Services, which has a high
density of jobs and consumer activity, and serves
segments of the population without access to an
automobile.
Springfield has access to transit through the Lane
Transit District (LTD). There are multiple bus lines that
run throughout Springfield and multiple buses that
connect Springfield and Eugene. The EmX bus rapid
transit system serves existing and future employment
nodes in Glenwood, Downtown and
RiverBend/Gateway.
Pedestrian and bicycle facilities. The ability for
workers to access amenities and support services
such as retail, banking, and recreation areas by foot or
bike is increasingly important to employers, particularly
those with high-wage professional jobs. The need for
safe and efficient bicycle and pedestrian networks will
prove their importance over time as support services
and neighborhoods are developed adjacent to
employment centers.
Springfield has pedestrian and bicycle facilities.
Springfield last updated the City Bicycle Plan in 1998.
The plan proposes expansion of bicycle facilities to
improve bicycle connectivity throughout the City and to
neighboring communities.
People in Springfield are able to use bicycle facilities
for commuting if they live and work in areas of the City
that have bicycle infrastructure. Commuting via
pedestrian facilities may be more limited to people who
live near their work.
Springfield’s pedestrian and bicycle facilities can be
used on conjunction with LTD buses to provide
opportunities for alternative methods of commuting for
people that live further from work.
Labor force. Firms are looking at reducing their
workforce risk, that is, employers want to be assured
of an adequate labor pool with the skills and qualities
most attractive to that industry. Communities can
address this concern with adequate education and
training of its populace. Firms also review turnover
rates, productivity levels, types and amount of skilled
workers for their industry in the area, management
recruitment, and other labor force issues in a potential
site area.
Commuting patterns within Springfield suggest that
businesses in Springfield have access to the workforce
of the Eugene-Springfield Region.
Firms in Springfield will need employees with a range
of skills, from people with customer service skills to
highly educated professionals. Some types of skills
that employers may need include: management skills,
technology, manufacturing (e.g., machinist or wood-
working), a range of medical training, creative skills,
and other skills or education. The educational and skill
requirements of businesses in Springfield are likely to
be similar to the needs of businesses throughout the
Eugene-Springfield Region.
Amenities. According to the International Economic
Development Council59, attracting and retaining skilled
workers requires that firms seek out places offering a
high quality of life that is vibrant and exciting for a wide
range of people and lifestyles.
Springfield offers access to outdoor amenities. Many
urban amenities are available in Springfield and
Eugene.
Fiber optics and telephone. Most if not all industries
expect access to multiple phone lines, a full range of
telecommunication services, and high-speed internet
communications.
Springfield has access to high-speed
telecommunications facilities.
59 International Economic Development Council. “Economic Development Reference Guide,”
http://www.iedconline.org/hotlinks/SiteSel.html. 10/25/02.
Attachment 1-152
Page 138 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Site Attribute Comments
Potable water. Potable water needs range from
domestic levels to 1,000,000 gallons or more per day
for some manufacturing firms. However, emerging
technologies are allowing manufacturers to rely on
recycled water with limited on-site water storage and
filter treatment. The demand for water for fire
suppression also varies widely.
Springfield has sufficient potable water to meet current
and expected needs.
Power requirements. Electricity power requirements
range from redundant (uninterrupted, multi-sourced
supply) 115 kva to 230 kva. Average daily power
demand (as measured in kilowatt hours) generally
ranges from approximately 5,000 kwh for small
business service operations to 30,000 kwh for very
large manufacturing operations. The highest power
requirements are associated with manufacturing firms,
particularly fabricated metal and electronics. For
comparison, the typical household requires 2,500 kwh
per day.
Springfield has access to sufficient power supply to
accommodate most commercial and industrial users.
Land use buffers. According to the public officials and
developers/brokers ECO has interviewed, Industrial
areas have operational characteristics that do not
blend as well with residential land uses as they do with
Office and Commercial areas. Generally, as the
function of industrial use intensifies (e.g., heavy
manufacturing) so too does the importance of buffering
to mitigate impacts of noise, odors, traffic, and 24-hour
7-day week operations. Adequate buffers may consist
of vegetation, landscaped swales, roadways, and
public use parks/recreation areas. Depending upon the
industrial use and site topography, site buffers range
from approximately 50 to 100 feet. Selected
commercial office, retail, lodging and mixed-use (e.g.,
apartments or office over retail) activities are becoming
acceptable adjacent uses to light industrial areas.
LONG-TERM LAND AND SITE NEEDS
Table C-3, presented earlier in this appendix, discusses Springfield’s
forecast for employment by building type. The analysis of long-term site
needs in Springfield builds off of the employment forecast for Springfield.
Consistent with the requirements of OAR 660-009-0015(2), the site needs
analysis presented in this section identifies the number of sites by broad
category of site type and size reasonably expected to be needed for the 20-
year planning period.
The steps in to get from the employment forecast in Table C-3 to an
estimate of needed sites are:
• Determine the amount of employment that can be accommodated
in non-employment plan designations.
Attachment 1-153
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 139
• Allocate new employment requiring land in employment
designations60 to sites ranging in size from less than 1-acre to
greater than 50-acres. This allocation is based on historic
employment patterns, discussed in Appendix A.
• Estimate the reasonable range of sites needed based on the
employment forecast, historic development patterns, and infill and
redevelopment potential.
• Estimate the needed sites by site size and building type, using the
range of sites identified in the previous step.
The remainder of this section is organized based on these steps.
In 2006, approximately 16% of Springfield’s employment was located in
non-employment (predominantly residential) plan designations. Table A-
9 and Map A-1 show the location of existing employment in Springfield.
We assumed that a similar percentage of employment would continue
locating in non-employment designations.
Table C-7 shows employment growth by the employment location. Table
C-7 assumes makes two assumptions that decrease land needed for new
employment:
• Some employment growth will occur on land not designated
for employment use. Some new employment will occur outside
commercial and industrial built space or land. For example,
some construction contractors may work out of their homes,
with no need for a shop or office space on non-residential land.
Currently 16% of employment is located in residential zones.
ECO assumed that this trend will continue.
• Some employment growth will not require new commercial or
industrial built space or land. Some employment growth will
be accommodated on existing developed or redeveloped land,
as when an existing firm adds employees without expanding
space. Typically about 10 to 15% of new employment is
accommodated in existing commercial or industrial built space.
ECO assumed that 10% of new employment will be
accommodated in existing commercial or industrial built space.
Using these assumptions, Springfield will need to provide land for
approximately 10,177 new employees between 2010 and 2030.
60 Not all new employment will require additional land in employment zoning designations. Some employment growth will
occur on land not designated for employment use (e.g., employment in residential zones) and some employment growth will
not require new commercial or industrial built space or land (e.g., new employment accommodated in existing built space).
Attachment 1-154
Page 140 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table C-7. New employment locating in non-employment plan
designations, Springfield, 2030
Source: ECONorthwest
Determining Springfield’s site needs requires distributing employment to
a range of site sizes, ranging from small sites (less than 1 acre and 1 to 2
acre sites) to large sites (20 to 50 acre and sites greater than 50 acres). Table
C-8 shows the distribution of employees by building type and site size in
non-residential plan designations in Springfield in 2006. About 22% of
Springfield’s employment is on sites 5 to 20 acres, 21% is on sites of less
than 1-acre, and 19% is on sites greater than 50 acres.
Table C-8. Percent of employees by building type and site sizes, Springfield, 2006
Source: ECONorthwest based on QCEW data
Note: Total Employees may not add to 100% because of rounding errors.
The percent of employees by building type and site size was calculated based on the number of employees in each building type and site size
categories using QCEW data and City of Springfield tax lot data.
Table C-9 distributes employees (shown in Table C-7) based on the
historic distribution of employment by site size and building type shown
in Table C-8. In other words, the analysis assumes that future employment
will require similar site sizes as current firms. For example, 21% of
employment will locate on sites less than 1 acre.
Type
New
Employment
Non-
employment
designtions
Existing
Com. & Ind.
Built Space
Employment
on New Land
Industrial
Warehousing & Distribution 389 0 39 350
General Industrial 1,066 0 107 959
Commercial
Office 4,713 754 471 3,488
Retail 2,043 327 204 1,512
Other Services 5,229 837 523 3,869
Total 13,440 1,918 1,344 10,178
Employment Location
Building Type
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50
Warehousing & Distribution 13% 6% 3% 63% 12% 3% 100%
General Industrial 15% 17% 17% 18% 2% 31% 100%
Office 28% 14% 15% 23% 13% 8% 100%
Retail 29% 13% 11% 18% 10% 18% 100%
Other Services 9% 4% 8% 5% 35% 38% 100%
Total 21% 12% 12% 22% 13% 19% 100%
Total
Employees
Site Size (acres)
Attachment 1-155
Draft: Springfield Economic Opportunities Analysis September 2009 ECONorthwest Page 141
Table C-9. Forecast of growth employment by building type and site size,
Springfield, 2010 to 2030
Source: ECONorthwest Note: The number of employees by site size may not add to the total shown in Table C-9 as a result of small rounding errors in the
calculation of number of employees.
Table C-10 shows the range of sites needed by site size and building type
in Springfield in 2030. The table uses information the following
information to determine the range of site needs:
• Total employment is employment by site size from Table C-9.
• Average employees per firm is based on analysis of the average
number of employees per firm by site size in Springfield in 2006.
• Needed sites based on historic employment patterns estimates the
number of sites needed by dividing the total employment by
average number of employees per firm. Although this calculation
provides a reasonable estimate of the number of sites needed based
on historical data, it does not take into account redevelopment
potential of existing sites or the need for a variety of sites.
• Range of needed sites presents a range of needed sites based on
the employment forecast, historical development patterns, and
potential for redevelopment.
Table C-10. Range of needed sites by site size and building type,
Springfield, 2010 to 2030
Source: ECONorthwest
Building Type
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50
Total
Employees
Warehousing & Distribution 46 21 9 221 41 12 350
General Industrial 141 161 167 168 20 302 959
Office 1,024 448 400 645 338 632 3,488
Retail 143 65 116 76 535 576 1,512
Other Services 817 451 460 869 520 752 3,869
Total 2,171 1,148 1,153 1,979 1,454 2,274 10,178
Site Size (acres)
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50 Total
Total Employment 2,171 1,148 1,153 1,979 1,454 2,274 10,178
Average Employees
per Firm 12 30 39 101 594 1,432
Needed Sites based
on historic employment
patterns 181 38 30 20 2 2 273
Range of needed
sites
180 to
250
40 to
70
30 to
60
20 to
45 3 to 6 2 to 4
275 to
435
Site Size (acres)
Attachment 1-156
Page 142 ECONorthwest September 2009 Draft: Springfield Economic Opportunities Analysis
Table C-11 presents and estimate of needed sites by site size and type of
building. The results show that Springfield needs approximately 371 sites.
Most sites are small, 2-acres or less. Springfield needs approximately 8
sites larger than 20-acres.
Table C-11. Estimated needed sites by site size and building type,
Springfield, 2010 to 2030
Source: ECONorthwest
The identified site needs shown in Table C-11 do not distinguish sites by
comprehensive plan designation. It is reasonable to assume that industrial
uses will primarily locate in industrial zones. Retail and service uses could
locate in commercial zones, mixed use zones, and residential zones.
Building Type
Less
than 1 1 to 2 2 to 5 5 to 20 20 to 50
Greater
than 50
Total
Sites
Warehousing &
Distribution 35 1 9
General Industrial 5 7 10 11 3 3 39
Office 100 20 20 5 1 146
Retail 70 15 10 4 99
Other Services 50 18 5 5 78
Total 225 60 48 30 5 3 371
Site Size (acres)
Attachment 1-157
Economic Development Objectives October 15, 2008 Page 1
and Implementation Strategies
Attachment 2, page 1
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
October 15, 2008
TO: Springfield City Council & Planning Commission
FROM: Bob Parker and Beth Goodman
SUBJECT: ECONOMIC DEVELOPMENT OBJECTIVES AND IMPLEMENTATION
STRATEGIES
The City of Springfield is conducting a Commercial Industrial Buildable Land Needs analysis.
Broadly, the project has three components: (1) a buildable lands inventory; (2) an economic
opportunities analysis; and (3) an economic development strategy. All of these elements are
required to comply with statewide planning Goal 9 and the Goal 9 rule (OAR 660-009). The
economic development strategy builds from previous work by the City and will be used to guide
development of land-use policies to implement the City’s economic development vision.
Economic development policies may address a range of outcomes, from policies to attract firms
or retain existing firms to policies to improve or maintain quality of life. The economic
development strategy presented in this memorandum was developed in support of the EOA and
is designed to meet the requirements of Goal 9. As a result, the economic development strategy
focuses on land-use issues, without addressing broader economic development strategies such as
labor force education that may also be a priority to the City and residents of Springfield.
The economic development strategy is the result of input from multiple sources:
• City Council and Planning Commission. At joint worksessions in June 2008,
decisionmakers provided guidance on economic development objectives for Springfield.
• Commercial Industrial Buildable Lands Stakeholder Committee. The Stakeholder
Committee provided input on the economic development objectives suggested by
decisionmakers and suggested implementation strategies for each objective.
• Community Development Survey. The City administered an on-line survey about
community development issues.
• Visioning Workshops. The City of Springfield held two community workshops to
discuss community development issues.
• Springfield Economic Development Plan. The City of Springfield completed a draft
Economic Development Plan, dated April 13, 2006. The Economic Development Plan
addresses a range of economic development issues, including (but not limited to) land-
use planning for economic growth.
Economic Development Objectives October 15, 2008 Page 2
and Implementation Strategies
Attachment 2, page 2
ORGANIZATION OF THIS MEMORANDUM
The remainder of the memorandum is organized as follows:
• Public Opinions about Economic Development Summarizes selected results from the
on-line community development survey and the public workshops.
• Framework for Understanding Economic Development Policies and Actions
provides an overview of economic development issues and types of economic
development policies and strategies that municipalities can adopt to achieve various
economic development goals.
• Economic Development Strategies and Implementation Steps for Springfield presents
objectives and strategies related to land-use to implement the City’s economic
development goals.
• Appendix A: Metro Plan Economic Element presents the economic goal, findings,
objectives and policies from the Metro Plan to provide context about existing regional
economic development policies.
PUBLIC OPINIONS ABOUT ECONOMIC DEVELOPMENT
While the analysis required to meet Goal 9 emphasizes market conditions and local productive
factors as the primary determinant of potential economic growth, Oregon’s Statewide Planning
Goals also recognize a role for local governments and citizens to express their desire for the level
and type of economic growth in their community. The desires of a city are formally stated in its
adopted Comprehensive Plan, economic development plans, and refinement plans. Development
of these plans always includes opportunities for public comment and plans are adopted by
elected bodies, so these plans collectively represent the community economic development
vision.
The 2004 Update of the Eugene-Springfield Metropolitan Area General Plan includes an
economic element that articulates the region’s economic goals and objectives (presented in
Appendix A). The Metro Plan lists a single economic development goal:
Broaden, improve, and diversify the metropolitan economy while maintaining or
enhancing the environment.
The range of views by individual citizens, however, is more diverse than the consensus
represented in adopted plans. This project included two public workshops and an online survey
to solicit citizen’s views on economic opportunities in Springfield, issues affecting economic
development, and potential policies to address these issues. This section summarizes the views
expressed at the public workshop and in the online survey.
RESULTS OF THE ONLINE SURVEY
As a part of this project, ECONorthwest developed and implemented an online survey from
April 4, 2008 through May 27, 2008. The intent of the survey was to collect anecdotal
information on the opinions and preferences of survey respondents on a variety of community
Economic Development Objectives October 15, 2008 Page 3
and Implementation Strategies
Attachment 2, page 3
development issues ranging from pace of growth to the importance of amenities and issues to
opinions about broad economic development policies. Following is a summary of the key
findings from the survey. The survey had 214 respondents, with 186 respondents completing the
entire survey, nearly three-quarters of whom lived inside the Springfield Urban Growth
Boundary (UGB).
• A majority of survey respondents (60%) think that Springfield is a better place to
live than it was 10 years ago. Respondents identified a broad range of reasons.
Some frequently mentioned reasons were new businesses, newer, more vibrant
buildings, an improved downtown, and the EmX.
• About 66% of respondents felt the rate of growth was “about right,” while about
18% indicated it is “too fast.” The remaining 16% of respondents thought that
growth was too slow (10%) or did not have an opinion (6%).
• About 76% of respondents felt that the city should “manage growth” as opposed
to limited growth or pursuing faster rates of growth. About 78% of respondents
thought that Springfield should manage growth by targeting specific types of
employers.
• Respondents identified the following three land-use issues as the top problems in
Springfield: (1) availability of family wage jobs; (2) development on steep slopes
and in floodplains; and (3) availability of affordable housing.
• A majority of respondents felt that redevelopment is a high priority in Downtown
(71%) and in Glenwood (63%).
• A majority of respondents support economic development policies that increase
economic activity, including policies to recruit new businesses and retain existing
businesses.
• About 85% of respondents supported policies to maintain Springfield’s existing
environmental quality.
RESULTS OF PUBLIC WORKSHOP
The City of Springfield held two community workshops to discuss community development
issues, one on May 20, 2008 and one on July 31, 2008. The intent of the workshops was to
collect anecdotal information on the opinions and preferences about community issues. At the
workshops, small groups formed to discuss issues of concern for developing Springfield’s
economy. The City summarized the results of each group’s discussion. This section summarizes
the themes discussed the workshops.
Economic Development Objectives October 15, 2008 Page 4
and Implementation Strategies
Attachment 2, page 4
Table 1. Summary of input from the Springfield Economic Development
Workshop
Category Issues and themes
Jobs and the
economy
Attract businesses that provide stable, living or family wage jobs that provide benefits
Recruit businesses that provide green or sustainable products
Lower the costs of doing business in the City, such as system development charges
and permitting fees
Attract businesses to the City through the use of enterprise zones
Sustainability
and the
environment
Balance environmental protection and greenfield development
Encourage green building practices for new development
Capitalize on opportunities to increase walkability and bicycling
Land use and
zoning
Balance the use of developing green-fields with redeveloping existing land and
emphasizing infill
Encourage more efficient land uses, including higher density development where
appropriate
Promote nodal development and mixed-use development, especially in downtown
Provide opportunities for high quality development along the riverfront
Reevaluate allowable uses, especially near schools
Consider parking and transportation needs when planning for new uses, especially in
downtown
Redevelopment Focus on redevelopment in downtown and Glenwood.
Revitalize downtown through redevelopment and rehabilitation of old buildings
Promote re-use of vacant buildings in downtown
Keep a historical perspective when considering redevelopment
Source: Springfield economic development workshops, May 20, 2008 and July 31, 2008
FRAMEWORK FOR UNDERSTANDING ECONOMIC DEVELOPMENT
POLICIES AND ACTIONS
A wide range of economic development policies and actions are available to cities that can affect
the level and type of economic development in their community. To affect economic
development, any policy or action must affect a factor of production that influence business
locations and job growth. In brief, the factors that have the most impact on business locations
and job growth are:
• Labor
• Land
• Local Infrastructure
• Access to markets and materials
• Agglomerative economies (clusters)
• Quality of life
• Entrepreneurship
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and Implementation Strategies
Attachment 2, page 5
The supply, cost, and quality of any of these factors obviously depend on national and global
market forces that local government has no influence over. But they also depend on public
policy, which can generally affect these factors of production through:
• Planning
• Regulation
• Provision of public services
• Taxes
• Incentives
The location decisions of businesses are primarily based on the availability and cost of labor,
transportation, raw materials, and capital. The availability and cost of these production factors
are usually similar within a region. Most economic development strategies available to local
governments only indirectly affect the cost and quality of these primary location factors.
Local governments can most directly affect tax rates (within the bounds of Measures 5 and 50),
the cost to businesses and quality of public services, and regulatory policies. Economists
generally agree that these factors do affect economic development, but the effects on economic
development are modest. Thus, most of the strategies available to local governments have only a
modest affect on the level and type of economic development in the community.
Local governments in Oregon also play a central role in the provision of buildable land through
inclusion in the Urban Growth Boundary, plan designation, zoning, and provision of public
services. Obviously, businesses need buildable land to locate or expand in a community.
Providing buildable land alone is not sufficient to guarantee economic development in a
community—market conditions must create demand for this land, and local factors of production
must be favorable for business activity. The provision of buildable land is one of the most direct
ways that the City of Springfield can affect the level and type of economic development in the
community.
POTENTIAL ECONOMIC DEVELOPMENT POLICIES AND ACTIONS
A broad range of policies and actions are available to cities in achieving local economic
development objectives. The effectiveness of any individual tool or combination of tools
depends on the specific objectives the municipality wants to achieve. In short, local strategies
should be customized not only to meet locally defined objectives, but to recognize economic
opportunities and limitations (as defined in the Economic Opportunity Analysis (EOA)). Positive
outcomes are not guaranteed: even good programs can result in limited or modest results.
Table 2 identifies a range of potential economic development strategies that the City of
Springfield could consider implementing. These strategies range from those closely associated
with the basic functions of government (provision of buildable land and public services) to those
sometimes viewed as outside the primary functions of government (such as financial incentives
and business assistance). The actual policies and actions adopted by the City of Springfield will
depend on the specific economic development issues and the role of the City in economic
development in the community.
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and Implementation Strategies
Attachment 2, page 6
Table 2. Range of potential economic development strategies
Category/Policy Description
Land Use Policies regarding the amount and location of available land and
allowed uses.
Provide adequate supply
of land
Provide an adequate supply of development sites to accommodate
anticipated employment growth with the public and private services, sizes,
zoning, and other characteristics needed by firms likely to locate in
Springfield.
Increase the efficiency
of the permitting process
and simplify city land-
use policies
Take actions to reduce costs and time for development permits. Adopt
development codes and land use plans that are clear and concise.
Public Services Policies regarding the level and quality of public and private
infrastructure and services.
Provide adequate
infrastructure to support
employment growth
Provide adequate public services (i.e. roads, transportation, water, and
sewer) and take action to assure adequate private utilities (i.e. electricity and
communications) are provided to existing businesses and development sites.
Focused public
investment
Provide public and private infrastructure to identified development or
redevelopment sites.
Communications
infrastructure
Actions to provide high-speed communication infrastructure, such as
developing a local fiber optic network.
Business Assistance Policies to assist existing businesses and attract new businesses.
Business retention and
growth
Targeted assistance to businesses facing financial difficulty or thinking of
moving out of the community. Assistance would vary depending on a given
business’ problems and could range from business loans to upgrades in
infrastructure to assistance in finding a new location within the community.
Recruitment and
marketing
Establish a program to market the community as a location for business in
general, and target relocating firms to diversify and strengthen the local
economy. Take steps to provide readily available development sites, an
efficient permitting process, well-trained workforce, and perception of high
quality of life.
Development districts
(enterprise zones,
renewal districts, etc.)
Establish districts with tax abatements, loans, assist with infrastructure,
reduced regulation, or other incentives available to businesses in the district
that meet specified criteria and help achieve community goals.
Business clusters Help develop business clusters through business recruitment and business
retention policies. Encourage siting of businesses to provide shared services
to the business clusters, including retail and commercial services.
Public/private
partnerships
Make public land or facilities available, public lease commitment in proposed
development, provide parking, and other support services.
Financial assistance Tax abatement, waivers, loans, grants, and financing for firms meeting
specified criteria. Can be targeted as desired to support goal such as
recruitment, retention, expansion, family-wage jobs, or sustainable industry.
Business incubators Help develop low-cost space for use by new and expanding firms with shared
office services, access to equipment, networking opportunities, and business
development information. Designate land for live-work opportunities.
Mentoring and advice Provide low-cost mentors and advice for local small businesses in the area of
management, marketing, accounting, financing, and other business skills.
Export promotion Assist businesses in identifying and expanding into new products and export
markets; represent local firms at trade shows and missions.
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and Implementation Strategies
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Category/Policy Description
Workforce Policies to improve the quality of the workforce available to local firms.
Job training Create opportunities for training in general or implement training programs for
specific jobs or specific population groups (i.e. dislocated workers).
Job access Provide transit/shuttle service to bring workers to job sites.
Jobs/housing balance Make land available for a variety of low-cost housing types for lower income
households, ranging from single-family housing types to multifamily housing.
Other
Regional collaboration Coordinate economic development efforts with the County, the State, and
local jurisdictions, utilities, and agencies so that clear and consistent policies
are developed.
Quality of life Maintain and enhance quality of life through good schools, cultural programs,
recreational opportunities, adequate health care facilities, affordable housing,
neighborhood protection, and environmental amenities.
Source: ECONorthwest.
ECONOMIC DEVELOPMENT STRATEGIES AND IMPLEMENTATION
STEPS FOR SPRINGFIELD
The following economic development strategies for Springfield are based on five sources of
information: (1) guidance on developing the strategies from the City Council and Planning
Commission; (2) input from the Stakeholder Committee on the strategies and implementation
steps; (3) public input on preferred types of growth and development strategies from the
visioning survey and public workshops; (4) existing goals and strategies in the Economic
Development Plan;, and (5) the principles of economic development presented in the section
above and Table 2.
Together these considerations suggest the following criteria and strategy for the City to support
economic development in Springfield. The strategies and implementation steps suggested below
are organized with objectives most related to land-use planning presented first. The objectives
were proposed by Springfield’s decisionmakers or through the Stakeholder group. The
implementation strategies was developed by the Stakeholder group or taken from Springfield’s
draft Economic Development Plan.
Objective 1: Provide an adequate supply of sites of varying locations,
configurations, and size, to accommodate industrial and other employment
over the planning period.
The Economic Opportunities Analysis (EOA) identifies the size and characteristics of sites
needed in Springfield for employment uses over the planning period. Using the site needs
described in the EOA, the City should track employment land use trends and re-evaluate
employment land needs in five to seven years. The City should always maintain an adequate
supply of land for employment uses.
Suggested implementation steps:
• Provide land to meet the site characteristics and site sizes described in the EOA.
These sites may include vacant, undeveloped land, partially developed sites with
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and Implementation Strategies
Attachment 2, page 8
potential for additional development through infill development, and redevelopable
areas. The City can provide land in two ways: (1) increasing commercial and
industrial land-use efficiency by promoting infill or redevelopment or (2) bringing
new land into the urban growth boundary.
• Work with property owners and their representatives to ensure that prime
development and redevelopment sites throughout the City and Urban Growth
Boundary are known, aggregated, ready to develop, and marketed.
• Work with property owners and their representatives to ensure that prime
development and redevelopment sites throughout the City and Urban Growth
Boundary that are designated for employment use are preserved for future
employment needs and are not subdivided or used for non-employment uses.
• Expand industrial site opportunities through rezoning and evaluating commercial,
residential, and industrial land for the best economic return for the community
through the process of Periodic Review of the Metro Plan, expanding the urban
growth boundary, and other means (e.g., Transportation Growth Management Grants
from the State of Oregon).
• Develop and implement a system to monitor the supply of commercial and industrial
lands. This includes monitoring commercial and industrial development (through
permits) as well as land consumption (e.g. development on vacant, or redevelopable
lands).
Objective 2: Provide an adequate competitive short-term supply of suitable
land to respond to economic development opportunities as they arise.
“Short-term supply” means suitable land that is ready for construction usually within one year of
an application for a building permit or request for service extension. “Competitive Short-term
Supply” means the short-term supply of land provides a range of site sizes and locations to
accommodate the market needs of a variety of industrial and other employment uses.
Suggested implementation steps:
• Where possible, concentrate development on sites with existing infrastructure or on
sites where infrastructure can be provided relatively easily and at a comparatively low
cost.
• Work with the State to have sites certified as project-ready through the state’s
certified Industrial Lands program.
• Track development of land in the short-term supply and replace developed land with
undeveloped or redevelopable land with similar characteristics (e.g., location, size,
topography, etc.) as the land that recently developed. The City may want to replenish
the short-term supply of land on an annual basis or every two to three years.
Objective 3: Reserve sites over 20-acres for special developments and
industries that require large sites.
There are comparatively few large sites relatively near to I-5 available for development in the
Southern Willamette Valley and no sites with these characteristics in the Eugene-Springfield
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and Implementation Strategies
Attachment 2, page 9
area.1 The City should preserve large sites, especially sites with access to I-5, to provide
opportunities for development by industries that require large sites.
Suggested implementation steps:
• Designate land for industrial or business parks to provide opportunities for
development of business clusters for related or complementary businesses.
• Develop policies that provide flexibility in the industrial or non-retail commercial use
of land on large sites.
Objective 4: Provide adequate infrastructure efficiently and fairly.
Public infrastructure and services are a cornerstone of any economic development strategy. If
roads, water, sewer, and other public facilities are unavailable or inadequate, industries will have
little incentive to locate in a community.
Suggested implementation steps:
• Coordinate capital improvement planning with land use and transportation planning
to coincide with the City’s Economic Development Strategy.
• Target resources of the Systems Development Funds of infrastructure on sites that
provide prime opportunities for employment uses as a result of location, site size, or
other significant site characteristics.
• Ensure that public-private development agreements to recover costs are in effect prior
to financing public improvements.
• Establish alternative funding mechanisms in addition to debt service that provide
timely completion of ‘connecting’ public facilities (unpaved block of a street or
missing sections of sewer line) with preferences to projects in existing neighborhoods
and those fostering economic development.
• Efficiently use existing infrastructure by promoting development, infill, re-use, and
redevelopment for commercial and industrial uses and developing strategies and
incentives to stimulate private investment that overcome anticipated impacts or
downturns in the local economy.
• Support development of citywide high-speed internet access and other
telecommunications infrastructures.
• Provide information on infrastructure availability on a site-by-site basis so that
developers are able to readily assess infrastructure availability on any given site.
• Assist with providing infrastructure through the use of Urban Renewal funding,
where appropriate.
1 According to Oregon Prospector, there are only nine sites in the Southern Willamette Valley with the following characteristics:
20 acres or larger, Project Certified, and within about five miles of I-5. The following counties have sites that match these
characteristics: three sites in Marion County, one site in Benton County, two sites in Linn County, no sites in Lane County, and
three sites in Douglas County.
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and Implementation Strategies
Attachment 2, page 10
• Assess lower systems development charges (SDCs) in redevelopment areas with the
capacity to provide land for employment, especially for redevelopment of areas five
acres and larger.
Objective 5: Encourage employers to locate in downtown Springfield, when
appropriate.
The City has policies to encourage residential and commercial redevelopment in downtown. The
redevelopment of downtown Springfield provides opportunities to both use land more efficiently
and minimize the costs of providing infrastructure.
Suggested implementation steps:
• Support the continued revitalization of Springfield's Downtown
• Pursue policies to promote infill and redevelopment in downtown Springfield
• Provide the infrastructure and services that businesses need to operate in downtown
Springfield
• Develop programs to promote investments in existing buildings to make downtown
more attractive, such as the Urban Renewal program.
• Develop a marketing strategy to attract businesses to downtown Springfield,
including providing low-cost assistance for businesses moving to downtown
Objective 6: Encourage redevelopment of Glenwood with a mixed use
employment and housing center.
The City has policies to encourage residential and commercial redevelopment in Glenwood. Like
redevelopment in downtown, redevelopment in Glenwood provides opportunities to both use
land more efficiently and minimize the costs of providing infrastructure.
Suggested implementation steps:
• Redevelop and develop sites in Glenwood through key investments, special standards,
and focused activity through the Springfield Economic Development Agency
(SEDA), the Glenwood Urban Renewal Plan, the Glenwood Refinement Plan and the
Riverfront Development Plan.
• Provide the infrastructure and services to necessary for development in Glenwood.
• Coordinate economic development in Glenwood with regional economic
development agencies.
• Promote economic development in Glenwood through techniques, such as land
assembly and cooperative development agreements, to assist developers with land
assembly problems.
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and Implementation Strategies
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Objective 7: Redevelop brownfields as the opportunities for reuse arise.
Springfield has more than 20 brownfield sites that will require clean-up before the sites can be
redeveloped. Springfield has about 20 to 50 more sites that may be brownfields if the sites were
available for redevelopment. The cost of clean-up will vary, depending on the prior uses and type
of contamination on the site.
Suggested implementation steps:
• Inventory existing brownfields in the Springfield UGB. The inventory should include
information about the site and brownfield: site location and size, previous uses,
pollution or contaminants, and other site characteristics.
• Develop policies that support redevelopment of brownfields. Opportunities to
encourage brownfield redevelopment may include tax incentives, decreases or
waiving development fees, or private-public partnerships for state or federal grant
funding for brownfield redevelopment.
• Provide non-monetary assistance with clean-up and redevelopment of ‘brownfield’
commercial and industrial sites, including, for example, the possible sponsorship of
applicable state and federal grants.
Objective 8: Encourage development of commercial businesses in close
proximity with residential uses, where appropriate.
Mixing commercial and residential development is appropriate in some areas of Springfield. The
City should encourage mixed used development that includes retail, office commercial, and
multifamily housing in areas like downtown. In more residential neighborhoods, the City should
consider mixing neighborhood retail or small-scale offices with residential uses.
Suggested implementation steps:
• Continue to support policies to encourage mixed-use development and nodal
development in Springfield’s downtown, Glenwood, and mixed-use nodes identified
in TransPlan.
• Support policies to mix small-scale commercial uses into existing and new residential
neighborhoods where these uses are appropriate and acceptable to residents.
• Support the co-location of residential and commercial uses in existing buildings by
providing financial assistance for necessary building upgrades to meet requirements
in the City’s building code, such as improvements to meet seismic standards.
• Reduce systems development charges (SDCs) and other development costs to
encourage redevelopment and commercial uses in residential areas, where
appropriate.
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and Implementation Strategies
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Objective 9: Support and assist existing businesses in Springfield.
Springfield’s existing businesses are important to the City’s continuing economic well-being.
Suggested implementation steps:
• Develop and implement an outreach strategy to determine how the City can assist
existing businesses. Opportunities for assistance may range from ensuring availability
of on-street parking to providing assistance with the development process to forming
public-private partnerships to promote Springfield businesses.
• Encourage self-help methods and programs for business districts such as the
formation of business associations and special self-assessment districts for parking
and economic improvement.
• Pursue special projects and grant applications that provide support to local business
and industry.
• Support the co-location of residential and commercial uses in existing buildings by
providing financial assistance for necessary building upgrades to meet requirements
in the City’s building code, such as improvements to meet seismic standards.
• Reduce systems development charges (SDCs) and other development costs to
encourage redevelopment and commercial uses in residential areas, where
appropriate.
Objective 10: Increase the potential for employment in one of the regional
industry clusters.
The clusters include: Health Care, Communication Equipment, Information Technology
(Software), Metals (Wholesalers), Processed Food and Beverage, Wood & Forest Products, and
Transportation Equipment.
Suggested implementation steps:
• Provide the services, infrastructure, and land needed to attract these types of
businesses, especially where it can increase connectivity between businesses.
• Designate land for industrial/technology/business parks to provide opportunities for
development of business clusters for related or complementary businesses.
• Promote development of support businesses for business clusters, including
specialized suppliers for the business cluster, restaurants, financial institutions, and
other services.
• Promote further development of the health care cluster in the Gateway area by
examining land-use policies in the area and, if necessary, modify the policies to
promote development of medical and other employment that requires specific types
of land.
• Promote development of high-tech businesses by continuing to target these businesses
for recruitment and expansion in Springfield.
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and Implementation Strategies
Attachment 2, page 13
• Coordinate development of business clusters with other cities and economic
development agencies in the Eugene-Springfield region but emphasize development
of the business cluster in Springfield.
Objective 11: Increase the potential for convention- and tourist-related
economic activities.
Tourism results in economic activity, especially in the service industries like retail, food services,
and accommodations. For example, the direct economic benefit of lodging tax receipts from
overnight accommodations to Springfield in 2007 was $1.2 million. Springfield could increase
tourism through building tourism-relative facilities, such as a convention center, through growth
of businesses that bring tourists to the City, and through increased marketing.
Suggested implementation steps:
• Assist with conference center development at a suitable site in Springfield with a goal
of making it financially independent with self-sustaining operations.
• Encourage development of destination point projects (like the Springfield Museum
Interpretive Center, Dorris Ranch Living History Farm and McKenzie River fishing
and recreational activities) that draw visitors to the Springfield area from regional,
national, and international areas.
• Ensure that the factors that are likely to attract visitors to Springfield, especially
Springfield’s environmental quality and natural beauty, are protected and enhanced.
Objective 12: Attract sustainable businesses and support sustainable
development practices.
The City should foster the creation of a local, sustainable economy by partnering with other
organizations to watch for opportunities and vulnerabilities, incubate and coordinate projects and
facilitate dialogue, action and education within the community. The City should also work to
reduce Springfield’s exposure to global economic and social vulnerabilities that could result as
fuel supplies cease to be abundant and inexpensive.
Suggested implementation steps:
• Define “sustainable businesses” and what business practices qualify as “sustainable.”
• Promote and recruit businesses that produce sustainable products, have sustainable
business practices, and/or have sustainable manufacturing processes.
• Support land use patterns that reduce transportation needs, promote walkability and
provide easy access to services and transportation options.
• Rebate development fees for development projects that are certified as sustainable to
nationally recognized standards (e.g., LEED buildings).
• Provide incentives for development that uses sustainable building materials or
solutions (e.g., instead of using traditional asphalt, using permeable asphalt) or use of
sustainable energy sources (e.g., solar or wind power).
Economic Development Objectives October 15, 2008 Page 14
and Implementation Strategies
Attachment 2, page 14
• When developing policies that will impact land outside of the Springfield UGB,
consider future agricultural needs and economic opportunities to protect agricultural
lands for production of local food.
Objective 13: Recruit businesses that pay higher than average wages for
the region.
Maintaining and creating high-wage jobs is important for the development of Springfield’s
economy. Economic development recruitment efforts the City engages in should target high-
wage jobs.
Suggested implementation steps:
• Work with Lane Metro Partnership and other economic development organizations to
target and recruit businesses: (1) with above average wages (as reported by the
Oregon Employment Department), (2) other benefits such as health insurance,
especially for part-time employees, and/or (3) that provide other benefits such as job
advancement or ownership opportunities.
• Work with local agencies to meet workforce needs, such as: training and education,
job advancement, or local expansion of businesses that are less subject to boom and
bust cycles.
• Coordinate with community economic development organizations to develop a
coherent and effective marketing program. Coordinate development of the strategy
local and state economic development agencies.
• Use word-of-mouth to market Springfield to prospective businesses based on the
City’s reputation for: rapid processing of permits and applications, maintaining City
agreements and commitments, minimizing surprises in the development process, and
providing developers with certainty and flexibility in the development process.
Depending on this type of marketing will require that the City strive to enhance and
maintain the City’s reputation for these attributes.
Economic Development Objectives October 15, 2008 Page 15
and Implementation Strategies
Attachment 2, page 15
APPENDIX A: METRO PLAN ECONOMIC ELEMENT (2004)
This appendix is the Economic Element from the 2004 update of the Metropolitan Area General
Plan. The purpose of this appendix is to provide context for the existing regional economic
development policies.
In recent years, there has been a strong structural shift in the Eugene-Springfield metropolitan
area’s economy. This shift is characterized by four trends: (a) a decline in the lumber and wood
products industry as a source of employment; (b) limited increase in employment in other
manufacturing activities; (c) diversification of the non-manufacturing segments of the local
economy, primarily in trade, services, finance, insurance, and real estate; and (d) the
development of this metropolitan area as a regional trade and service center serving southern and
eastern Oregon.
The decline in lumber and wood products and diversification of the non-manufacturing sectors
are consistent with changes that are occurring in other portions of the state and throughout the
nation as a result of rising real incomes and higher productivity of labor in manufacturing. The
increase in employment in other manufacturing activities in this area has lagged behind other
portions of the state, particularly the Portland area, and many other places in the nation. Given
the projected growth in this area’s economy, it is essential that an adequate supply (quantitatively
and qualitatively) of commercial and industrial land be available. An adequate supply of land
includes not only sites sufficient in size to accommodate the needs of the commercial or
industrial operations (including expansion), but also includes sites which are attractive from the
standpoint of esthetics, transportation costs, labor costs, availability of skilled labor, natural
resource availability, proximity to markets, and anticipated growth of local markets.
In striving toward the Land Conservation and Development Commission’s (LCDC) Statewide
Planning Goal 9: Economic Development, “To provide adequate opportunities throughout the
state for a variety of economic activities vital to the health, welfare, and prosperity of Oregon’s
citizens,” the Eugene-Springfield metropolitan area must take advantage of and encourage the
further diversification of this area’s economic activities and role as a regional center.
This diversification and growth can improve the opportunities for presently underutilized human
resources and generally raise the standard of living for metropolitan area residents.
Implicit in the goals and objectives that follow is the premise that the economic health of the area
is integrally related to the quality of life for residents. Improved welfare of the residents of the
metropolitan area, measured by increases in employment opportunities and reductions in
unemployment, increases in real incomes, and improved environmental quality are the ultimate
goals of all economic efforts. Economic growth or industrial expansion is acceptable when it is
consistent with these goals and objectives.
ECONOMIC GOAL
Broaden, improve, and diversify the metropolitan economy while maintaining or enhancing the
environment.
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and Implementation Strategies
Attachment 2, page 16
FINDINGS, OBJECTIVES, AND POLICIES
Findings
1. The structure of the Eugene-Springfield metropolitan area economy is undergoing a
shift away from lumber and wood products manufacturing (and other heavy industrial
activities) and towards a more diverse economic base characterized by growth in light
manufacturing activities and the non-manufacturing activities of trade, commercial
and professional services, finance, insurance, and real estate.
2. The lumber and wood products sector is the metropolitan area’s dominant
manufacturing activity; and in this respect, Lane County’s forest is the area’s most
important natural resource utilized as a factor of production.
3. Major institutions in the metropolitan area including the University of Oregon and
Sacred Heart Hospital, have had a stabilizing influence on the local economy.
4. The Eugene-Springfield metropolitan area is developing as a regional center for
activities, such as tourism, distribution, and financial services, serving the
southwestern and central Oregon area.
5. Based on data from the 2000 U.S. Census, the per capita income in 1999 for the
Eugene- Springfield metropolitan area was lower than for Oregon as a whole and the
Portland metropolitan area.
6. In 2000, the unemployment rate in the Eugene-Springfield metropolitan area was
comparable to Oregon and higher than the national rate.
7. Historically, heavy-manufacturing industries, including primary metals, chemicals
and paper, have been characterized by high levels of pollution or energy
consumption. Changes in technology and environmental regulations have reduced the
potential environmental impacts of these industries. Heavy manufacturing industries
provide benefits, such as relatively high wage scales and the potential for generating
secondary manufacturing activities.
8. Both expansion of existing businesses through use of local capital and entrepreneurial
skills and the attraction of new employers offer realistic opportunities for economic
development.
9. The healthful environment of the metropolitan area can help attract industrial
development, hold workers, and attract convention- and tourist-related economic
activities. The concern for clean air and water is high priority with area residents.
10. The provision of adequate public facilities and services is necessary for economic
development.
11. There are presently inefficiently used resources in the metropolitan area, including
land, labor, and secondary waste products.
12. Major employment areas include the Eugene and Springfield central business
districts, the University of Oregon area, Sacred Heart Hospital, the west Eugene
industrial area, the north (Gateway) and south Springfield industrial areas, the
Highway 99N industrial area, Country Club Road, Chad Drive, and the Mohawk-
Northgate area.
13. The metropolitan economy is made up of a number of interrelated and important
elements, one of which is construction and construction-related activities.
Construction, for example, is essential for all sectors of the economy, as well as for
the provision of an adequate supply of affordable housing.
14. The mixture of commercial and office uses with industrial uses can reduce or enhance
the utility of industrial areas for industrial purposes, depending upon circumstances.
Economic Development Objectives October 15, 2008 Page 17
and Implementation Strategies
Attachment 2, page 17
Uncontrolled mixing creates problems of compatibility and traffic congestion, and
may limit the area available for industrial development. Limited mixing, subject to
clear and objective criteria designed to minimize or eliminate incompatibility, traffic
problems, and which preserve the area for its primary purpose, can make an industrial
area more pleasant, convenient, economical, and attractive as a place to work or
locate.
15. Campus industrial firms prefer city services.
16. Campus industrial firms have varied site location requirements, prefer alternative
sites to choose from, and usually benefit from location of other special light industrial
firms within the community and within the same industrial development.
Objectives
1. Improve the level, stability, and distribution of per-capita income for metropolitan
residents.
2. Reduce unemployment in the resident labor force, especially chronic long-term
unemployment.
3. Encourage local residents to develop skills and other educational attributes that would
enable them to obtain existing jobs.
4. Promote industrial and commercial development with local capital, entrepreneurial
skills, and experience of the resident labor force, as well as with new light
manufacturing companies from outside the metropolitan area.
5. Supply an adequate amount of land within the urban growth boundary to
accommodate: the diversifying manufacturing sector (especially low polluting,
energy-efficient manufacturing uses): and (b) the expansion of the metropolitan area
as a regional distribution, trade, and service center.
6. Maintain strong central business districts to provide for office-based commercial,
governmental, and specialized or large-scale retail activities.
7. Ensure compatibility between industrial lands and adjacent areas.
8. Reserve enough remaining large parcels for special developments requiring large lots.
9. Increase the potential for convention- and tourist-related economic activities.
10. Provide the necessary public facilities and services to allow economic development.
11. Attempt to find ways to more effectively use inefficiently used resources such as
land, labor, and secondary waste products.
12. Provide for limited mixing of office, commercial, and industrial uses subject to clear,
objective criteria which: (a) do not materially reduce the suitability of industrial,
office, or commercial areas for their primary use; (b) assure compatibility; and (c)
consider the potential for increased traffic congestion.
Policies
B.1 Demonstrate a positive interest in existing and new industries, especially those
providing above average wage and salary levels, an increased variety of job
opportunities, a rise in the standard of living, and utilization of our existing
comparative advantage in the level of education and skill of the resident labor force.
B.2 Encourage economic development, which utilizes local and imported capital,
entrepreneurial skills, and the resident labor force.
B.3 Encourage local residents to develop job skills and other educational attributes that
will enable them to fill existing job opportunities.
Economic Development Objectives October 15, 2008 Page 18
and Implementation Strategies
Attachment 2, page 18
B.4 Encourage the continuance of career preparation and employment orientation for
metropolitan area residents by the community’s educational institutions, labor unions,
businesses, and industry.
B.5 Provide existing industrial activities sufficient adjacent land for future expansion. B.6
Increase the amount of undeveloped land zoned for light industrial and commercial
uses correlating the effective supply in terms of suitability and availability with the
projections of demand.
B.7 Encourage industrial park development, including areas for warehousing and
distributive industries and research and development activities.
B.8 Encourage the improvement of the appearance of existing industrial areas, as well as
their ability to serve the needs of existing and potential light industrial development.
B.9 Encourage the expansion of existing and the location of new manufacturing activities,
which are characterized by low levels of pollution and efficient energy use.
B.10 Encourage opportunities for a variety of heavy industrial development in Oregon’s
second largest metropolitan area.
B.11 Encourage economic activities, which strengthen the metropolitan area’s position as a
regional distribution, trade, health, and service center.
B.12 Discourage future Metro Plan amendments that would change development-ready
industrial lands (sites defined as short-term in the metropolitan Industrial Lands
Special Study, 1991) to non-industrial designations.
B.13 Continue to encourage the development of convention and tourist-related facilities.
B.14 Continue efforts to keep the Eugene and Springfield central business districts as vital
centers of the metropolitan area.
B.15 Encourage compatibility between industrially zoned lands and adjacent areas in local
planning programs.
B.16 Utilize processes and local controls, which encourage retention of large parcels or
consolidation of small parcels of industrially or commercially zoned land to facilitate
their use or reuse in a comprehensive rather than piecemeal fashion.
B.17 Improve land availability for industries dependent on rail access.
B.18 Encourage the development of transportation facilities which would improve access
to industrial and commercial areas and improve freight movement capabilities by
implementing the policies and projects in the Eugene-Springfield Metropolitan Area
Transportation Plan (TransPlan) and the Eugene Airport Master Plan.
B.19 Local jurisdictions will encourage the allocation of funds to improve transportation
access to key industrial sites or areas through capital budgets and priorities.
B.20 Encourage research and development of products and markets resulting in more
efficient use of underutilized, renewable, and nonrenewable resources, including
wood waste, recyclable materials, and solar energy.
B.21 Reserve several areas within the UGB for large-scale, campus-type, light
manufacturing uses. (See Metro Plan Diagram for locations so designated.)
B.22 Review local ordinances and revise them to promote greater flexibility for promoting
appropriate commercial development in residential neighborhoods.
B.23 Provide for limited mixing of office, commercial, and industrial uses under
procedures which clearly define the conditions under which such uses shall be
permitted and which: (a) preserve the suitability of the affected areas for their primary
uses; (b) assure compatibility; and (c) consider the potential for increased traffic
congestion.
Economic Development Objectives October 15, 2008 Page 19
and Implementation Strategies
Attachment 2, page 19
B.24 Continue to evaluate other sites in and around Springfield and Eugene for potential
light-medium industrial and special light industrial uses, as well as potential
residential uses.
B.25 Pursue an aggressive annexation program and servicing of designated industrial lands
in order to have a sufficient supply of “development ready” land.
B.26 In order to provide locational choice and to attract new campus industrial firms to the
metropolitan area, Eugene and Springfield shall place as a high priority service
extension, annexation, and proper zoning of all designated special light industrial
sites.
B.27 Eugene, Springfield, and Lane County shall improve monitoring of economic
development and trends and shall cooperate in studying and protecting other potential
industrial lands outside the urban boundary.
B.28 Recognize the vital role of neighborhood commercial facilities in providing services
and goods to a particular neighborhood.
B.29 Encourage the expansion or redevelopment of existing neighborhood commercial
facilities as surrounding residential densities increase or as the characteristics of the
support population change.
B.30 Industrial land uses abutting the large aggregate extraction ponds north of High Banks
Road in Springfield shall demonstrate that they require the location next to water to
facilitate the manufacture of testing of products made on-site.
UGB / Commercial Industrial Buildable Lands (CIBL)
Stakeholder Committee
Summary of Committee Process &
Recommendations
Thursday, April 16th, 2009
The CIBL Stakeholder Committee is advisory to the Planning Commission and City
Council. The Committee has met nine times at Springfield City Hall, 225 Fifth Street,
Library Meeting Room, 6-8pm. All meetings were open to the public.
Committee Members:
Member Name Membership Category
1. Mayor Leiken City Council liaison
2. Lee Beyer, Planning Commissioner Springfield Planning Commission liaison
3. Johnny Kirschenmann, Planning
Commissioner
Springfield Planning Commission liaison
4. Dan Egan, Executive Director Chamber of Commerce
5. Dave Marra (DC Real Estate); Jim Welsh,
(JD Welsh Co.) as alternate
Springfield Board of Realtors
6. Lauri Segel – Planner (Goal 1 Coalition)
Land Use Advocacy Group
7. Eve Montanaro - Watershed Coordinator,
Middle Fork Willamette Watershed Council
Watershed Council
8. Philip Farrington Director, Land Use
Planning & Development (PeaceHealth)
Large Health Care Provider
9. Tim Stokes – Local Business Owner
(Metal Products)
Manufacturing Employer
10. Don OldenBurg (Symantec) High-tech Industry
11. Guy Weese, Board Member (Emerald
Empire Art Association)
Arts-Based Employment Sector
12. Kari Westlund, Executive Director
(CVALCO), Richard Boyles (Alternate)
Tourism Industry
13. George Grier, Board Member & Voting
Delegate (Lane County Farm Bureau)
Regional agri-business
14 & 15. Brianna Huber, Thurston High High School Student
CITY OF SPRINGFIELD, OREGON
225 FIFTH STREET
SPRINGFIELD, OR 97477
(541) 726-3753
(541) 726-3689 fax
www.ci.springfield.or.us
PLANNING AND COMMUNITY DEVELOPMENT
Attachment 3-1
School Student; Naomi Campollo,
Springfield High School Student
16. Mike Kelly, Springfield Citizen Citizen at large
17. Donna Lentz, Springfield Citizen Citizen at large
18. Steven Yett, Paramount Center, LLC. Retail Industry
19. Doug McKay, McKay Commercial
Properties LLC
Commercial Developer
This document is a compilation of key points from the meeting minutes and is intended
to provide a concise, abbreviated summary of the committee’s process and
recommendations to date. Agreements and decision points are underlined.
Meeting 1: April 24, 2008.
Dan Egan and Lee Beyer volunteered to co-chair the Committee.
The group discussed committee meeting process and established guidelines.
Committee members agreed to set monthly Stakeholder Committee meetings for
the fourth Thursday of each month.
Mayor Leiken reiterated the importance of the project and noted that the project
timeline may lengthen if need be, as the Committee works through each issue.
Committee members agreed that the Stakeholder Committee should try to reach
consensus, but, if that is not possible, have a vote. Majority and minority opinions
would then still be forwarded to the Planning Commission / City Council. Mr.
Egan suggested that opinions would be encapsulated in the minutes.
David Reesor led the group in a “snow card” process to identify key issues.
Mr. Parker discussed the upcoming Public Workshop and future discussion of
inventory work and the Economic Opportunities Analysis.
Meeting 2: May 22, 2008
Mr. Parker described the context for economic development, and spoke in depth
about economic trends affecting Springfield’s future.
Mr. Parker led the group in a discussion related to the Economic Development
Strategy in Springfield. He asked the group to comment about assumptions
related to future growth in Springfield. These assumptions included:
• Job and population growth will continue in Springfield
• Springfield wants to be a “complete community”
• Springfield will continue to function within the regional economy
• The ratio of types of employment growth in Springfield will be similar to
the regional forecast
– 70% services
– 10% government
– 20% manufacturing
• The City wants to:
– Attract higher wage jobs
– Diversify the economy
– Provide a sufficient number of sites for long-term and short-term needs
– Make strategic infrastructure investments to accommodate growth
Attachment 3-2
• Springfield will not have funds to provide major subsidies to attract firms
Overall comments related to general acceptance of the assumptions. Some specific
comments related to the following:
• Importance of strategically planning for future infrastructure, including
changing needs of infrastructure (i.e. auto, truck, railway, etc.)
• Consider cost of infrastructure
• Assuring ability to access employment sites
• Estimating different site needs for office development versus industrial
development
• Diversity in the economy is important
• Importance should be placed on higher wage jobs
• Expand from just referencing “regional economy” to include “national and
world economy” and its effects on Springfield
• Some subsidies may be important for certain types of business if they’re
choosing to locate between only a few different communities.
• Cost of raw materials is having an adverse effect in the manufacturing
sector.
• Springfield is a self employment friendly community.
• Value should also be placed on preserving and sustaining natural
resources while balancing the need for jobs.
• The manufacturing sector is changing, but not leaving. Biomanufacturing,
intellectual management are examples of the changing manufacturing
sector.
• Next round of jobs coming to Springfield will be here because “they want
to be here, not because they have to be here.” Quality of life is important
and a selling point for attracting industries.
• Private / public partnerships will continue to be important
• It shouldn’t be taken for granted that job growth will continue in
Springfield; Corvallis was given as an example as a community which has
lost jobs in recent years.
• Springfield will benefit from people’s general desire to “come out West…”
• There should not be too much separation between Eugene and
Springfield, as it’s a regional economy. However, Springfield doesn’t want
to be a bedroom community to Eugene.
Meeting 3: June 26, 2008
Ms. Goodman presented the results of the online community development
survey. 214 people responded to the survey –slightly less than a similar survey
conducted in Ashland. The group discussed survey validity and the public
involvement process. Terry Moore noted that the Committee can recommend as
a group how much emphasis should be given to the survey results. Mr. Moore
noted that most people’s concerns related to the survey findings would be
addressed in the Economic Development Objectives / Strategies discussion.
Mr. Beyer facilitated a group discussion of the survey findings:
• Ms. Segel spoke to the group about rising energy costs and the effects on
future industries. She stated that, in her opinion, there were impeded
assumptions in the survey – assumptions should have included climate
change, rising fuel costs, etc.
Attachment 3-3
• Mr. Grier spoke about survey findings, and indicated that the results show
that we need to protect our quality of life; people want to live and work
within close proximity; etc. He noted that there is useful information in the
survey findings.
• Ms. Lentz stated that she had concerns over vacant development – she’d
like to see the vacant stores filled up prior to building on the fringes.
• Mr. Kirschenmann spoke to the group about Springfield’s ground water
protection program and how Springfield is ahead of other communities in
that regard.
• Mr. Beyer discussed with the group his opinion regarding industries
reliance on transportation. Mr. Beyer spoke about emerging industries
such as solar manufacturing. He gave an example of solar manufactures
needing 100 + acre sites.
• Mr. Farrington spoke to the group about community amenities that attract
employers to this area. He noted that Springfield has these attractive
amenities.
• Mr. Marra discussed the importance of attracting new businesses to the
area by having enough available land. He also explained that call centers
are not necessarily long term businesses in his opinion, and that there
should be more focus on manufacturing industries.
• Mr. McKay spoke to the group about the importance of attracting smaller
manufacturing industries locate in Springfield. He indicated that there may
be a shift in the future to smaller manufacturers that provide items locally
and may be more of a shift towards service industries.
• Ms. Huber noted that new businesses need to be more environmentally
friendly and focus less on fossil fuel consumption.
• Mr. Grier asked Mr. Moore about factoring in energy costs into economic
development planning.
• Mr. Moore noted that the market is currently responding to the increase in
energy costs. The difference between the 1970s and today is that is
people believe it is more long term. People’s reaction today to high
energy costs will not happen overnight, but over the long-term. Policy
choices today, though, will help effect people’s responses to high energy
costs.
• The group discussed the relationship of energy costs and economic
development.
• Mr. Weese indicated that his opinion was that the high energy costs will
work itself out – there will either be more oil or cleaner energy.
• Ms. Segel noted that she disagreed with Mr. Weese and spoke to the
group about peak oil and climate change.
Presentation & Discussion of Draft Economic Development Objectives and
Strategies: Terry Moore. Mr. Moore’s presentation covered the following topics:
• “Narrow/traditional view” and “broad/emerging view” of economic
development.
• Simple model of regional growth
• Key objective of economic growth – “jobs”
• Factors that mater to firms
• Implications / policies related to economic development
Attachment 3-4
Group discussion focused on the “land development” section of economic
development objectives/strategies.
• George Grier stated that many communities attempt to include as
much land in the land need analysis as possible – this is a concern for
the agriculture community as it ties up the land base. Mr. Grier noted
that the planned infrastructure should guide development in a more
orderly manner.
• Lee Beyer spoke to the group about a need for large sites.
• Ms. Lentz indicated that she desired that the city fully utilize the
existing urbanized land prior to expanding the UGB.
• Mr. Farrington noted that there needs to be an adequate short term
supply of land.
• Ms. Segel spoke to the group about staying focused on
redevelopment of infill sites and that future patterns of development
may not be similar to historic patterns of development.
• Mr. Grier reiterated his point related to the importance of the
availability of infrastructure in relation to future growth. Availability of
infrastructure should drive the process.
• Mr. Beyer discussed that new, larger companies may not necessarily
need infrastructure in place, but rather they could help install the
infrastructure themselves.
• Mr. Farrington reiterated his point of allowing flexibility for
accommodating new industries.
• Ms. Segel reiterated her point of changing industries and the effect of
high energy costs and decline in fossil fuel capacity. Ms. Segel
indicated that new call centers should not be allowed to build in the
floodplain.
• Group discussion continued regarding development on farm land;
floodplains, etc.
• Mr. Moore briefly spoke about redevelopment effects on land need.
• Eve Montanaro reminded the group that when hearing different
opinions during the meetings, that all members should respect others
and listen to different opinions.
• Additional questions were asked by the group related to the effect of
historic trends relation to future economic planning.
Meeting 4: July 24, 2008
Staff presented a Group Working Agreement to the Committee. The Committee
agreed to adhere to the Group Working Agreement.
Economic Development Objectives / Strategies. Mr. Parker gave the
Committee a brief overview of steps taken to provide the draft objectives and
strategies. These steps included: work sessions with Planning Commission and
City Council; Stakeholder Committee discussion during the June Stakeholder
meeting; online survey taken by Stakeholder Committee; and discussions with
staff. The Committee provided comments and suggestions on the draft
Economic Development Objectives / Strategies:
Attachment 3-5
Redevelopment Potential. The committee agreed to Mr.Parker’s proposal to
produce the inventory / redevelopment estimates using the mid-range
redevelopment potential scenario.
Meeting 5: September 25, 2008
Public Testimony. At committee member George Grier’s request, staff
distributed a printed handout describing a seminar the University of Oregon is
conducting regarding Multi-Lane Boulevards to the Committee.
City Attorney Bill VanVactor spoke to the Committee regarding new State ethics
law/requirements for public representatives.
Discussion of Draft Economic Opportunities Analysis (EOA) & Inventory.
Committee members commented on the information presented by ECO
Northwest, including corrections to inventory maps; inventory constraints re
ODOT regulations on Main Street; building regulations on floodplain and
floodway within the existing Urban Growth Boundary. After deliberation on the
issue, it was agreed that floodplain would be included as potentially buildable
land for existing inventory purposes, so long as it did not preclude potentially
excluding floodplain land in any future expansion areas during the Alternatives
Analysis.
Committee members agreed with the Technical Advisory Committee’s
assessment of inventory constraints. Committee members identified edits to be
made to the inventory maps.
Meeting 6: October 23, 2008
Economic Opportunities Analysis (EOA). Present site / land needs based
upon revised EOA.
Finalized discussion and recommendation of Redevelopment
Assumptions. The following comments/recommendations were made by
Stakeholder Committee members:
Mike Kelly:
Agreed with ECO’s redevelopment assumptions for small retail development.
His experience is that it is easier to redevelop commercial sites smaller than 2
acres (especially those 1 acre and smaller) but that commercial sites larger than
2 acres are harder to redevelop.
Questions that Springfield will get 50% redevelopment of industrial development
given the history of Springfield. Noted that developers want large industrial sites
that are ready to build.
There is a need for more new parcels available for industrial parcels 5 acres and
larger.
Guy Weese:
Employment site needs can / should be met through redevelopment and infill
Attachment 3-6
ECO’s assumptions are statistically valid, but lack of large, unconstrained vacant
land on the fringe of the UGB make it unrealistic to assume that Springfield will
be able to find large sites for new development.
Described many vacant buildings he knows of which could be redeveloped.
Naomi Campollo:
Explained that there should be a priority list and timeline for redevelopment of
properties.
List of when and what will be developed on specific sites.
Richard Boyles:
Agreed with Mike Kelly
Steven Yett:
Agreed with Mike Kelly - pressure is on having large lots
Also agreed with ECO on redevelopment of smaller sites.
Thinks that the City needs to provide larger, good sites for development.
Johnny Kirschenmann:
Agreed with ECO recommendations
Dan Egan:
Explained that if redevelopment is to happen at ECO’s assumed level, there
needs to be strong city policies / tools to support redevelopment in order for it to
occur.
Stated opinion that redevelopment hasn’t historically been as aggressive as ECO
recommendation.
Thinks that the assumptions underestimate the demand for large sites.
George Grier:
ECO’s recommendations are realistic, not aggressive.
Is concerned with the cost of servicing new sites.
Philip Farrington:
Overall agreed that ECO’s recommendation was accurate.
Thinks that the City will need sites to capture larger businesses but that the
analysis does a good job with assumptions about redevelopment of smaller sites.
Stated opinion that safe harbor population projection underestimates growth in
Springfield.
Lee Beyer:
Overall agreed with ECO’s recommendation given the fact it’s for a 20-year time
period.
Eve Montenaro.:
ECONorthwest Assumptions are reasonable
Donna Lentz:
ECONorthwest Assumptions are reasonable
Attachment 3-7
Meeting 7: November 20, 2008
Staff prepared a memorandum summarizing the committee’s comments on the
Economic Opportunities Analysis (EOA):
November 20th, 2008
Stakeholder Committee Comments / Recommendations
on the Draft EOA
Lee Beyer:
Felt that the assumptions / recommendations are a compromise but acceptable
Technical analysis is sound
Kati Westlund:
Asked that the cluster development narrative in the draft EOA include a
conference center (page 48 – add box for conference center. Page 50 –
additional conference center would add to tourism industry in Springfield). Also
noted that a couple additional large sites would be desirable.
Don Oldenburg:
Overall agrees with ECONorthwest recommendations – however, would like at
least one additional large site.
Commercial redevelopment assumptions seem reasonable
Industrial redevelopment assumptions may be overly aggressive
Johnny Kirschenmann:
Overall felt that ECO’s assumptions / analysis are realistic – however, an
additional large site would be helpful – but doesn’t want to risk not getting State
approval if additional large sites are added.
Naomi Campollo:
Overall agreed with ECO’s assumptions / analysis
Dave Marra:
Overall agreed with ECO’s assumptions / analysis but thought the parcels
needed should be large
Indicated that there may be a need to update the inventory again after study is
complete.
Doug McKay
Likes the idea of creating large parcels – but noted that there will be pressure to
partition / subdivide large parcels into smaller ones.
Dan Egan:
Infill and redevelopment assumptions are very aggressive. Understands that
assumptions are a “political compromise”, and is comfortable with that.
Noted that large sites are needed for cluster employment sites (noted example of
RiverBend site)
Guy Weese:
Agreed that there is a need for more large parcels.
Attachment 3-8
Steven Yett:
Noted that having one or two more large sites is critical.
Agreed that there will be pressure to partition / subdivide large sites
Explained that historic redevelopment / infill trends did not occur at a fast pace –
but noted that there was more “green field” land available in the 1970s than
today, and that it was easier to develop.
George Grier:
Noted that Springfield is geographically constrained, and servicing new
expansion sites will be extremely costly (i.e. new bridges, sewer, etc.).
Consider System Development Charges (SDCs) – more aggressive growth will
cost more money for SDCs. Cost of infrastructure should be considered in any
UGB expansion.
Fiscal and geographic realities make it appropriate to look at infill. ECO’s
assumptions don’t appear overly aggressive. The assumptions don’t take into
account parcel assembly.
Concern expressed over how some of the assumptions were made. Projected
need for medical and government services outside the UGB is overstated –
believes this can be accommodated through parcel assembly.
Concern expressed over general growth rate.
Supports redevelopment for commercial
Mike Kelly:
Would like to see more sites for 20 acre or larger sites, but understands that this
could create a need to change some of the underlying assumptions.
The draft EOA is acceptable
Brianna Huber
Agrees that it would be useful to bring in more large sites.
Donna Lentz:
Agrees with George Grier – the City should try to work with the sites we currently
have inside the existing UGB.
Economic Opportunities Analysis (EOA) ECONorthwest presented
revisions to the EOA, updates to the Buildable Lands Inventory, infill and
redevelopment assumptions, site needs & land needs. Key points and
clarifications from the Committee’s discussion:
• Bob Parker explained that providing a range of site needs scenarios (low vs.
high scenario) provides some flexibility when looking at sites outside the
UGB.
• All land within the existing UGB was part of the analysis.
• The existing Metro Plan designation was used as the basis of the analysis
and constraints such as wetlands were discounted.
• Glenwood was included.
• Mr. Kirschenmann asked about whether or not Jasper Natron was included in
the short supply. John Tamulonis explained costs and timelines associated
with future road and sewer construction to Jasper Natron.
Attachment 3-9
• Mr. Parker noted that there are a lot of small sites available in the existing
UGB, but not a lot of large sites.
• Mr. Grier noted that there were no redevelopment assumptions made about
parcel assembly. Mr. Parker explained that the redevelopment assumptions
regarding needed small sites will be addressed through changes in land use
policies that effect land use efficiency within the existing UGB. Mr. Parker
noted that the State allows parcel assembly to be considered a constraint
because of the difficulties associated with it.
• Kari Westlund explained how the number of site needs and acreage need
was calculated.
• Beth Goodman explained that the high scenario was put in place since the
last meeting in response to what was previously heard from the Stakeholder
Committee, TAC, Planning Commission and Council related to allow flexibility
in including large employment sites.
• Doug McKay asked for clarification on the low vs. high scenario – asked if
ECONorthwest wanted the group to come to consensus on the low vs. high
scenario. Mr. Parker stated that the Committee is not asked to decide this
evening between the low vs. high scenario. He indicated that the discussion
should move forward into the alternatives analysis next month, allowing the
Committee to look at what types of sites are available.
• Mr. McKay asked if there is a sense of how many acres of commercial and
industrial were used in the last 20 years.
• Mr. Tamulonis indicated that he could perhaps find more information, but that
it was not currently available.
• Mr. Kelly stated that he was surprised that commercial and industrial needs
were treated the same. He felt that they are not the same. He stated that
industrial uses are drawn towards green field sites rather than redevelopable
sites. He also explained that small commercial site needs are more likely to
be met through redevelopment than industrial.
• Lee Beyer explained that he shares some of the same concerns. He
indicated that he was somewhat bothered that all of the industrial sites will be
met through redevelopment.
• Mr. Parker explained that there is a need for an industrial park, which could
then be divided into smaller pieces to meet the need for small industrial sites.
He noted that there is a need to balance needed sites with UGB expansion.
He further explained that some new industrial uses are different than
traditional industrial uses.
• Mr. Egan noted that companies look for sites based upon specific need. He
explained that in his experience, it’s hardly ever a site that is smaller than 50
acres. He noted that Springfield does not have an industrial park with
available sites. He explained that in a 20-year period, there will be hundreds
of industries looking for new sites. He noted that Springfield needs to focus
on large sites were there are the most inquiries.
• Mr. McKay asked clarification on typical parcel sizes for big-box stores. Mr.
Parker noted that warehouse sites need to be located close (i.e.
approximately one-half mile) from I-5
• Mr. Egan explained that the definition of “industrial” is different than what it
used to be – it is more based on technology centers (i.e. solar manufacturing,
software manufacturers, etc - not smoke stacks.
Attachment 3-10
• Mr. Parker focused the group again on the methodology – he noted that he
heard many Stakeholders saying that they’re uncomfortable with the
redevelopment assumptions related to industrial sites more so than
commercial sites.
• Don Oldenburg asked for clarification regarding how numbers were
generated to accommodate all needed sites less than 5 acre sites within the
existing UGB, and 50% of the 5-20 acre sites through redevelopment.
• Mr. Parker explained that the assumptions were from input from the
Stakeholders, Council, public, etc. – Springfield wants economic development
but also efficient land use (i.e. not have small employment sites on the fringe
of the UGB, but focus them on the center). The assumption with the 5-20
acre sites were discounted to 50% because they are more difficult to come-
by.
• Mr. Parker explained that the Study needs to be legally defendable – he
noted that the City could be a lot more aggressive with the Goal 9 analysis.
He explained that it is ultimately a policy decision if the City chooses the
proposed redevelopment assumptions, as it limits land supply on the fringe,
which then encourages redevelopment in the existing UGB.
• Lee Beyer explained that redevelopment for small sites (less than 5 acres)
makes sense because the cost of infrastructure for these small sites on the
fringe would be more prohibitive.
• Kari Westlund asked for clarification on a table shown in the PowerPoint. She
noted that it appeared to show a surplus of small industrial sites. She
explained that small commercial sites are where it showed site deficits.
• Mr. Kelly noted the complexity of bringing in residential land into needed
acreage.
• Ms. Westlund noted that Springfield may not have enough land for large
parcels when considering more residential growth.
• Mr. Grier asked for clarification in the revised EOA draft, which showed a
decrease campus industrial acreage. Mr. Parker explained that it was mostly
due to incorporating Marcola Meadows master planned area. There also was
a large portion of the Campus Industrial site in Gateway that is constrained by
floodway.
• Dave Marra passed around a flyer advertising a big-box site near Wilsonville -
he indicated it was an example of something Springfield needs.
• Mr. Beyer explained there is a difference between how companies seek
commercial and industrial sites – commercial demand is driven by purchasing
power and population – industrial is different.
• Mr. Egan gave an example of the Woodburn outlet mall - he indicated that
Springfield would not have the ability to site a similar commercial
development with our existing land supply.
Finalize discussion and recommendation of Revised EOA.The following is a
general summary of the combined comments from the Stakeholder Committee:
“The majority of Committee members felt strongly that Springfield needs more large
sites but are accepting of the fact that the City may need to settle for less to get the
plan approved -- approval being the most important point at this time. A minority of
the group felt equally strongly that we should not pursue a large expansion of the
UGB.”
Attachment 3-11
Meeting 8: January 22, 2009
Bill Van Vactor, City Attorney gave a presentation: Safe Harbor Population
Forecast.
Allen Johnson, Attorney gave a presentation: Adopting Springfield’s UGB and
UGB Adoptions around the State.
Potential Employment Opportunity Areas & Constraints: Ten different
opportunity areas were discussed. The notes below summarize the discussion
regarding each site.
Site #1 North Gateway Area
Constraints Discussion:
• Floodplain and floodway issues in the area.
• How much of the area (in acres is affected by flood hazards?
• Much of the Wicklund property is designated as a “Natural Resource Area” in
addition to being subject to floodplain and floodway issues.
• The Committee should be careful to avoid choosing expansion sites that cannot
realistically be developed because of topographical or environmental constraints
that were not an issue when the original inventory of industrial lands was
compiled.
• The cumulative effects of building in the floodplain must be considered. Such
development is going to take a problem and move it somewhere else.
• The TAC indicates that Johnson Rd. provides some potential access. Why is this
so?
• There are significant limitations on the traffic capacity in the Beltline-Gateway
vicinity may affect the North Gateway site.
• ODOT says there is a potential limitation on the density of buildout in the area
(Trip cap).
Opportunities Discussion:
• The site is popular and visible from I-5 and is near other industrial development.
• Has the large parcels (25-50 acres) that are needed.
• Future improvements to I-5/Beltline and Gateway could expand transportation
capacity in the area.
• EMx is extending service into the area.
Site #2 Hayden Bridge Area
Constraints Discussion:
• The area seems to be confined with the adjacent steep sloped lands, and the
rivers. Is it affected by floodplain issues?
• There appear to be significant areas of hydric soils that are a sign of wetland
issues.
• May not be developable for industrial uses.
• May be better for future residential development.
Opportunities Discussion:
• May be easy to service with nearby infrastructure (south side of Hayden Bridge).
• Good connection to I-5 via Hwy 126.
Attachment 3-12
• TAC thinks the area is compatible with future office or retail development. What
was the thinking of the TAC? There is no surrounding residential base to support
retail development.
Site #3 North McKenzie Highway
• George Grier declared that he has a potential conflict of interest related to this
site, given that he owns land in the vicinity. He indicated that he would keep his
comments factual and objective.
Constraints Discussion:
• Significant floodplain and floodway problems. The 1996 flood inundated a
number of areas on the map that are shown to be outside the floodplain. The
floodplain maps are not accurate for this location.
• SUB groundwater protection regulations are an absolute constraint on this land.
There are nearby wellheads that would limit commercial and industrial
development.
• Cedar Creek is the receiving body for much of the stormwater runoff for North
Springfield. City studies indicate that Cedar Creek is at capacity and will be
challenged to accommodate future runoff from urban development within the
existing UGB.
Opportunities Discussion:
• None discussed.
Site #4 Far East Springfield Area
Constraints Discussion:
• Stormwater constraints. This area drains to Cedar Creek. Development
proposed on the Gray property which is inside the existing UGB was constrained
by the stormwater capacity limitations of Cedar creek.
• Steep slopes are also an issue in this area which would constrain development.
• The area would probably be best considered for residential development.
Opportunities Discussion:
• None discussed.
Site #5 Wallace Creek Area and Site #6 West Jasper/Jasper Bridge Area
Constraints Discussion:
• Site #5 has some steep slope issues. The ridge separating the Wallace Creek
basin includes areas of thin soils covering basalt outcroppings that prevented the
extension of the Bob Straub Parkway to Wallace Creek as originally planned.
• Site 6# has floodplain issues and is affected by the Willamette Greenway which
requires riparian setbacks from the river.
Opportunities Discussion:
• The Bob Straub Parkway provides an improved access route to Hwy 126 and I-5
from this area. Is this a logical extension of the Jasper-Natron area?
• Development within the Jasper Natron area along the Bob Straub Parkway may
spur future development in this area.
Attachment 3-13
• The Weyerhaeuser Haul Rd. provides a connection to the Wallace Creek from
Jasper Natron.
• There is an existing industrial site just south of Jasper that should be considered.
Site #7 Clearwater Area
Constraints Discussion:
• Floodplain should be respected. If you don’t build around the flood channels
running through the area there will be problems.
• The area is part of a SUB ground water protection area (Willamette Wellfield).
• New rules for lending in floodplain areas are not favorable to homeowners.
• This area should be considered for residential development. Some
neighborhood scale commercial would be appropriate.
Opportunities Discussion:
• The school district owns some land along Clearwater Lane.
Site #8 South Millrace Area
Constraints Discussion:
• Is within the 0-5 year time of travel zone. The Willamette Wellfield ( wellheads) is
a prominent part of the area. Development can occur within time of travel zones,
but mitigation is necessary and would restrict the used of certain chemicals by
commercial and industrial users.
• The rail crossing at 28th St. is a choke point for emergency access when trains
are moving through the area.
Opportunities Discussion:
• There is a substantial amount of publically owned land in Site #8. The City,
Willamalane and Sub all control parcels in the area which may help guide future
development in a positive way.
• There is nearby industrial development. Integration of this area with existing
urban development to the north makes sense.
• Some residential development may be acceptable.
Site #9 Seavey Loop Area and Site #10 Goshen Area
Constraints Discussion:
• Floodplain and wetland issues are apparent in this area.
• ODOT indicates that 30th and I-% interchange has capacity constraints.
• Much of the area has Class I and Class II soils which are “low priority” for
inclusion in urban areas under state planning rules.
• Mt. Pisgah is a sensitive recreational/environmental area.
Opportunities Discussion:
• Glenwood provides Springfield with a nexus to Site #9. Sewer connections to the
area through Glenwood may be possible.
• There is a significant industrial and commercial development in the area already,
especially along I-5 in both Site #9 and Site #10.
• The proximity to I-5 and 30th Ave. are beneficial for transportation access.
• ODOT has plans to improve the I-5/ 30th interchange.
Attachment 3-14
• Would expanding Site #10 to include that portion of Goshen west of I-5 be
feasible and or allowed under the Metro Plan? The Metro Plan governs the
boundary between Eugene and Springfield within the Metro Plan boundary.
Goshen is outside of the Metro Plan area. None the less, there may be push
back if Springfield seeks to incorporate land west of I-5.
• Wildish owns land near Mt. Pisgah that it has proposed for residential
development.
Meeting 9: February 26, 2009 (Draft – to be approved on April 16).
The Committee reviewed and provided comment on the Draft Estimate of Public
and Semi-Public Land Needs Memorandum and Preliminary Results of the
Residential Land Needs Analysis. Final calculations of how much land is
available within the existing UGB will be finalized in the next few weeks and
incorporated into the final residential lands analysis.
George Grier presented a conceptual plan for east Main Street supported by the
Farm Bureau that showed how redevelopment along east Main Street could
account for much of the needed residential units projected in the study and would
reduce average VMT, reduce carbon emissions, reduced energy costs, etc. The
study was prepared by a University of Oregon Architecture studio class.
Round-Robin sharing of the committee’s thoughts about the process to:
Brianna Huber: It has been an interesting learning experience. I have enjoyed working
with all of you.
Dave Marra: Great bunch of people. Good experience.
Johnny Kirschenmann: It has been a great experience. This is a more complicated
process than the Planning Commission issues usually considers. ECONorthwest did a
good job of laying things out.
Dan Egan. I have enjoyed the process. I look back 20 years and the town didn’t look
this way when I first moved here. I disagree with George in that I have to tell people that
they have to take their great businesses somewhere else because we didn’t have the
land. It will be important to have a final document that integrates the land needs for
commercial, industrial, and residential lands combined.
Mike Kelly: I think we feel short of where we expected to, especially with the alternative
analysis. I understand there were reasons for us to stop where we have. We need to
have a policy that says here are our land use policy and our economic development
policies.
Guy Weese: I have enjoyed the experience. I first thought that redevelopment would
take care of our needs. We need some bigger pieces of land. The reality is that it will
take people who are willing sell their land and someone willing to invest in development.
Kari Westlund: I was challenged by the material. I was interesting and like others felt
like I didn’t really have much influence and that we stopped short of where I thought we
were going.
Attachment 3-15
Philip Farrington: Springfield is attempting to fulfill its responsibility to maintain an
inventory of buildable lands and I applaud the City Council for doing so.
Don Oldenburg: We are doing the responsible thing that will help shape where our
community will go.
Doug McKay: I have been involved in redevelopment. Assembly of land can become
expensive as soon as your neighbors hear you are trying to assemble land. I think that
small redevelopment projects can be a catalyst for improving surrounding properties.
Future Opportunities for the Committee Members to Stay Involved.
Staff presented a flow chart with opportunities for future Stakeholder involvement that
provide a meaningful opportunity for influencing a final recommendation. The consultant
will continue to work on refining the opportunity areas to come up with a specific
recommendation to present for public review.
Staff was requested to provide the Committee with the recommendations in advance of
the joint meeting with the Planning Commission. Committee members also expressed
that a Committee meeting be scheduled before the Planning Commission/Council
meeting to allow time to review the recommendations.
Attachment 3-16
Page 1 of 1
RECOMMENDATION TO THE CITY COUNCIL
BEFORE THE PLANNING COMMISSION
OF THE
CITY OF SPRINGFIELD
REQUEST TO ADOPT THE SPRINGFIELD ] RECOMMENDATION TO
COMMERCIAL LANDS, ECONOMIC ] THE CITY COUNCIL
OPPORTUNITIS ANALYSIS AND ]
Case Number LRP 2007-00031
NATURE OF THE APPLICATION
1. The City of Springfield has commissioned a Commercial and Industrial Buildable Lands
Inventory and Economic Opportunities Analysis to outline Springfield’s employment land
needs for the next 20 years as part of Springfield 2030 Refinement Plan pursuant to LCDC's
Economic Development goal and rule in order to carry out mandate of 2007 Or Laws Chapter
650 requiring Springfield to separately establish its own urban growth boundary pursuant to
statewide land use goals.
2. In 2007 the Oregon Legislature passed House Bill 3337 which mandates the City of Springfield
to complete the 20 year buildable residential land inventory analysis and determination on or
before January 1, 2010. The city chose to conduct the Commercial and Industrial Lands Study
concurrently. The initial stage does not include adoption or amendment of an urban growth
boundary or amendment to any comprehensive plan policies or designations.
3. Local adoption of the Springfield Commercial and Industrial Buildable Lands Inventory and
Economic Opportunities Analysis is an interim step towards establishing Springfield’s own
urban growth boundary pursuant to statewide land use goals.
4. The final decision on adoption of the Springfield Commercial and Industrial Buildable Lands
Inventory and Economic Opportunities Analysis shall be made by the Springfield City Council
and the Lane County Board of Commissioners as the Springfield Commercial and Industrial
Buildable Lands Inventory and Economic Opportunities Analysis is incorporated into the
Springfield 2030 Refinement Plan, a refinement plan of the Eugene-Springfield Metro Plan.
Subsequent action in compliance with HB3337 to establish a separate urban growth boundary
for Springfield may rely in part on this document, a variation of this document, or entirely new
documentation. The adoption of a UGB is an iterative process, and depending on how the
record develops, the background assumptions, analysis and determinations in the attached
Springfield Commercial and Industrial Buildable Lands Inventory and Economic Opportunities
Analysis may change.
5. Timely and sufficient notice of the public hearing, pursuant to Springfield Development Code
Section 5.2-115, has been provided.
6. The Springfield Commercial and Industrial Buildable Lands Inventory and Economic
Opportunities Analysis is consistent with 2007 Or Laws Chapter 650, State Economic
Development Planning Goals and Rules OAR 660-0015, OAR 660-009-0020, OAR 660-009-
0025 as amended by LCDC in 2007, and applicable comprehensive plan policies. While not
explicitly required by Or Laws 2007 Chapter 650, the Commercial and Industrial Buildable
Lands Study supplements the residential lands determination required by Or Laws 2007
Chapter 650 by evaluation of the additional buildable lands necessary for the establishment of
an urban growth boundary.
Attachment 4-1
Page 2 of 1
7. On December 15, 2009, a public hearing on the Springfield Commercial and Industrial
Buildable Lands Inventory and Economic Opportunities Analysis was held before the City of
Springfield Planning Commission. The Development Services Department staff report, the
oral testimony, letters received, written submittals of the persons testifying at the hearing, and
the public record for file # LRP2007-00031 have been considered and hereby are incorporated
into the record for this proceeding.
CONCLUSION
On the basis of this record, the proposed Springfield Commercial and Industrial Buildable Lands
Inventory and Economic Opportunities Analysis as submitted is consistent with the criteria of 2007 Or
Laws Chapter 650, State Economic Development Planning Goals and Rules OAR 660-0015, OAR
660-009-0020, OAR 660-009-0025 as amended by LCDC in 2007, and applicable comprehensive
plan policies.
RECOMMENDATION
The Planning Commission, at its December 15, 2009 meeting, hereby recommends that the City
Council approve the determination set forth in the Commercial and Industrial Buildable Lands
Inventory and Economic Opportunities Analysis, as presented herein at Case No. LRP2007-00031.
______________________________
Planning Commission Chairperson
ATTEST:
AYES: _____
NOES: _____
ABSENT: _____
ABSTAIN: _____
Attachment 4-2
Attachment 5-1
Attachment 5-2
Attachment 5-3