HomeMy WebLinkAboutItem 13 Comprehensive Plan Map Clarification Project AGENDA ITEM SUMMARY Meeting Date: 11/20/2023
Meeting Type: Regular Meeting
Staff Contact/Dept.: Chelsea Hartman/DPW
Staff Phone No: 541-726-3648
Estimated Time: 5 Minutes
S P R I N G F I E L D
C I T Y C O U N C I L
Council Goals: Provide Financially
Responsible and
Innovative Government
Services
ITEM TITLE: COMPREHENSIVE PLAN MAP CLARIFICATION PROJECT
ACTION
REQUESTED:
Conduct a second reading and adopt AN ORDINANCE AMENDING THE EUGENE-
SPRINGFIELD METROPOLITAN AREA GENERAL PLAN (METRO PLAN) AND
SPRINGFIELD COMPREHENSIVE PLAN TO ADOPT THE SPRINGFIELD
COMPREHENSIVE PLAN MAP AND LAND USE ELEMENT; AMENDING THE
DOWNTOWN REFINEMENT PLAN, GATEWAY REFINEMENT PLAN,
GLENWOOD REFINEMENT PLAN, EAST KELLY BUTTE REFINEMENT PLAN,
EAST MAIN REFINEMENT PLAN, MID-SPRINGFIELD REFINEMENT PLAN,
AND Q STREET REFINEMENT PLAN; AMENDING THE SPRINGFIELD
DEVELOPMENT CODE; ADOPTING A SAVINGS CLAUSE AND
SEVERABILITY CLAUSE; AND PROVIDING AN EFFECTIVE DATE
ISSUE
STATEMENT:
As part of continuing to develop the Springfield Comprehensive Plan, a key step is to
create a map that shows existing plan designations for each property in Springfield by
interpreting and clarifying the Metro Plan Diagram. The Springfield Comprehensive
Plan Map will add greater certainty with a solid visual understanding of existing plans
and policies.
ATTACHMENTS: Attachment 1: City Council Ordinance
Exhibit A: Springfield Comprehensive Plan Amendments
Exhibit B: Metro Plan Amendments
Exhibit C: Refinement Plan Amendments for Co-adoption
Exhibit D: Refinement Plan Amendments (Springfield-only adoption)
Exhibit E: Downtown Refinement Plan Amendments (Springfield-only adoption)
Exhibit F: Springfield Development Code Amendments
Exhibit G: Staff Report and Findings
DISCUSSION/
FINANCIAL
IMPACT:
The Council held a joint public hearing and meeting with the Lane County Board of
Commissioners on October 16, 2023 and closed the hearing. No public comment was
provided during or following the October public hearing. Since then, staff identified
changes to the Ordinance to make its effective date March 1, 2024 and to include a
savings clause to allow for any adopted amendments to the Metro Plan Diagram or any
refinement plan diagrams that occur between the adoption of this Ordinance and before
its effective date to relate back to the Springfield Comprehensive Plan Map. The
purpose is to prevent this Ordinance from effectively repealing any Metro Plan diagram
or refinement plan diagram amendment that is lawfully adopted following approval and
adoption of this Ordinance, but prior to its effective date.
Staff also updated the staff report showing that the findings support adoption rather than
a proposal. They also now included information about the Springfield and Lane County
Planning Commission recommendations, public testimony, and the joint elected
officials public hearing. After Council adopts the Ordinance, the Board will hold its
third reading of the related Lane County Ordinances (PA 1390 and 23-07) on January 9,
2024.
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CITY OF SPRINGFIELD, OREGON
ORDINANCE NO. ___________ (GENERAL)
AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL PLAN (METRO
PLAN) AND SPRINGFIELD COMPREHENSIVE PLAN TO ADOPT THE SPRINGFIELD
COMPREHENSIVE PLAN MAP AND LAND USE ELEMENT; AMENDING THE DOWNTOWN
REFINEMENT PLAN, GATEWAY REFINEMENT PLAN, GLENWOOD REFINEMENT PLAN, EAST
KELLY BUTTE REFINEMENT PLAN, EAST MAIN REFINEMENT PLAN, MID-SPRINGFIELD
REFINEMENT PLAN, AND Q STREET REFINEMENT PLAN; AMENDING THE SPRINGFIELD
DEVELOPMENT CODE; ADOPTING A SAVINGS CLAUSE AND SEVERABILITY CLAUSE; AND
PROVIDING AN EFFECTIVE DATE
WHEREAS, in 1986, the City of Springfield, Lane County, and City of Eugene jointly adopted the
Eugene-Springfield Metropolitan Area General Plan (“Metro Plan”) diagram as a generalized map
depicting land use designations applicable within the Metro Plan boundary and as a graphical depiction
of the broad goals, objectives, and policies of the Metro Plan;
WHEREAS, in 2007, the Oregon Legislature adopted ORS 197.304 requiring the City of Springfield and
City of Eugene to each establish an independent urban growth boundary (UGB) and demonstrate that
each cities’ comprehensive plan provides sufficient buildable lands within its UGB to accommodate
needed housing under Oregon statute;
WHEREAS, the City of Springfield and Lane County adopted a separate Springfield UGB and adopted
the Residential Land Use and Housing Element as the first element of the Springfield Comprehensive
Plan (Springfield Ordinance 6268, adopted June 20, 2011; Lane County Ordinance PA-096018, adopted
July 6, 2011);
WHEREAS, the City of Springfield and Lane County amended the Metro Plan diagram to reflect a
Metro Plan Boundary that is coterminous with the Springfield UGB east of Interstate 5 (Springfield
Ordinance 6288, adopted March 18, 2013; Lane County Ordinance PA-1281, adopted June 4, 2013);
WHEREAS, the City of Springfield, Lane County and the City of Eugene adopted amendments to the
Metro Plan that allow each city to determine the extent to which particular sections in the Metro Plan
will apply within the individual city’s UGB through future amendments to the Metro Plan (Springfield
Ordinance 6332, adopted December 1, 2014, Lane County Ordinance PA 1313, adopted November 12,
2014; Eugene Ordinance 20545, adopted November 25, 2014);
WHEREAS, the City of Springfield and Lane County adopted amendments to the Springfield UGB to
accommodate needed employment lands and adopted the Springfield Comprehensive Plan Economic
Element and Urbanization Element (Springfield Ordinance 6361, adopted December 5, 2016; Lane
County Ordinance PA-1304, adopted December 6, 2016);
WHEREAS, the City of Springfield has adopted area-specific refinement plans that supplement the
Metro Plan policies for a specific geographical area, including property-specific refinement plan maps
that amend the Metro Plan diagram, including the Gateway Refinement Plan, Glenwood Refinement
Plan, East Main Refinement Plan, Mid-Springfield Refinement Plan, Q Street Refinement Plan, East Kelly
Butte Refinement Plan, and Downtown Refinement Plan;
Attachment 1 Page 1 of 169
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WHEREAS, in November 2021, the City of Springfield received a technical assistance grant from the
Oregon Department of Land Conservation and Development to enable the City of Springfield to prepare
and adopt a Springfield Comprehensive Plan Map that provides comprehensive plan designations at the
property-specific level within the Springfield UGB, to serve as the basis for future Springfield housing
capacity analysis;
WHEREAS, the City of Springfield initiated a Type II Metro Plan amendment pursuant to Metro Plan
Chapter IV and Springfield Development Code 5.14.115.B.2, to amend the Metro Plan and Springfield
Comprehensive Plan to adopt the Springfield Comprehensive Plan Map as a replacement of the Metro
Plan diagram within the Springfield UGB, and to adopt the Springfield Comprehensive Plan Land Use
Element;
WHEREAS, the City of Springfield is concurrently adopting amendments to six neighborhood area
refinement plans and the Springfield Development Code to implement the Springfield Comprehensive
Plan Land Use Element and Springfield Comprehensive Plan Map;
WHEREAS, in accordance with the Community Engagement Plan endorsed by the Springfield
Committee for Citizen Involvement, the City of Springfield has provided opportunities for public
engagement including but not limited to a Project Advisory Committee, a Technical Advisory Group,
specific outreach to owners of property with ambiguous or uncertain plan designations, and online and
in-person open houses including project information in both English and Spanish;
WHEREAS, on July 18, 2023, the Springfield and Lane County planning commissions conducted a
properly noticed joint public hearing on the proposed amendments and approved a recommendation to
the Springfield City Council and Lane County Board of Commissioners to adopt the proposed
amendments;
WHEREAS, on October 16, 2023, the Springfield City Council and Lane County Board of
Commissioners conducted a properly noticed joint public hearing, and is now ready to take action
based upon the above planning commission recommendations and evidence and testimony in the
record and presented at the public hearing; and
WHEREAS, substantial evidence exists within the record demonstrating that the proposed
amendments meet the requirements of the Metro Plan, Springfield Development Code, Lane Code, and
other applicable state and local law as described in the Staff Report and Findings attached as Exhibit G,
which are adopted in support of this Ordinance,
NOW, THEREFORE, THE COMMON COUNCIL OF THE CITY OF SPRINGFIELD ORDAINS AS FOLLOWS:
Section 1. The Springfield Comprehensive Plan is amended to adopt the Springfield
Comprehensive Plan Map, Springfield Comprehensive Plan Land Use Element, and conforming text
amendments, as provided in Exhibits A-1, A-2, and A-3, attached hereto and incorporated by this
reference.
Section 2. The following refinement plan diagrams are amended as depicted in Exhibit A-1:
Downtown Refinement Plan, East Kelly Butte Refinement Plan, East Main Refinement Plan, Gateway
Refinement Plan, Glenwood Refinement Plan, Mid-Springfield Refinement Plan, and Q Street
Refinement Plan.
Attachment 1 Page 2 of 169
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Section 3. The Metro Plan is amended as provided in Exhibit B, attached hereto and
incorporated by this reference, to (1) adopt text reflecting that Metro Plan Chapter II-G (Metro Plan
Diagram) no longer applies within the Springfield UGB and is replaced by the Springfield
Comprehensive Plan Land Use Element, and (2) adopt text reflecting that the plan designations
depicted on the Metro Plan diagram no longer apply within the Springfield UGB and are replaced by the
designations depicted on the Springfield Comprehensive Plan Map.
Section 4. The Gateway Refinement Plan text and Glenwood Refinement Plan text are
amended as provided in Exhibit C, attached hereto and incorporated by this reference, for consistency
with the Springfield Comprehensive Plan Map and Land Use Element.
Section 5. The East Main Refinement Plan text, Mid-Springfield Refinement Plan text, and Q
Street Refinement Plan text are amended as provided in Exhibit D, attached hereto and incorporated by
this reference, for consistency with the Springfield Comprehensive Plan Map and Land Use Element.
Section 6. The Downtown Refinement Plan text is amended as provided in Exhibit E,
attached hereto and incorporated by this reference, for consistency with the Springfield Comprehensive
Plan Map and Land Use Element and to correct textual errors in said plan.
Section 7. The Springfield Development Code is amended as provided in Exhibit F, attached
hereto and incorporated by this reference, to implement the Springfield Comprehensive Plan Map and
Land Use Element.
Section 8. Savings Clause.
(a) Except as specifically amended herein, the Metro Plan, Springfield Comprehensive Plan,
Springfield area refinement plans, and the Springfield Development Code will continue in full force and
effect.
(b) During the period following the adoption of this Ordinance and before the effective date
provided in section 10, any lawfully adopted amendment to the Metro Plan diagram or an area
refinement plan map shall automatically relate back to the Springfield Comprehensive Plan Map
adopted in section 1 of this Ordinance, and to any applicable area refinement plan map adopted in
section 2 of this Ordinance. The purpose of this provision is to prevent this ordinance from effectively
repealing any Metro Plan diagram amendment or area refinement plan map amendment that is lawfully
adopted following approval and adoption of this Ordinance, but prior to its effective date.
Section 9. Severability Clause. If any section, subsection, sentence, clause, phrase or
portion of this Ordinance is, for any reason, held invalid or unconstitutional by a court of competent
jurisdiction, such portion shall be deemed a separate, distinct and independent provision and such
holding shall not affect the validity of the remaining portion hereof.
Section 10. Effective date of Ordinance. The effective date of this Ordinance is March 1,
2024; or upon the date that an ordinance is enacted by the Lane County Board of Commissioners
approving the same amendments as provided in sections 1 through 4 and 7 of this Ordinance; or upon
acknowledgment under ORS 197.625; whichever occurs last.
ADOPTED by the Common Council of the City of Springfield this ___ day of _________, ____,
by a vote of _____ for and ____ against.
APPROVED by the Mayor of the City of Springfield this ______ day of __________, ____.
Attachment 1 Page 3 of 169
{00030177:1}
_______________________
Mayor
ATTEST:
__________________________
City Recorder
Attachment 1 Page 4 of 169
A-1 Adopt a Springfield Comprehensive Plan Map as shown in Exhibit A-1.
A-2 Adopt a Land Use Element as shown in Exhibit A-2.
A-3 Amend additional text for consistency with adoption of a Springfield Comprehensive
Plan Map and Land Use Element as summarized below and shown in track changes in
Exhibit A-3.
The amendments to the Springfield Comprehensive Plan’s Residential Land Use & Housing Element and
Urbanization Element are more substantive and are shown in track changes in Exhibit A-3.
The following amendments to the Springfield Comprehensive Plan are not shown in track changes based
on the limited nature of the amendments, which include:
• Replace references to “Metro Plan Diagram” or “2030 Plan Diagram” with “Springfield
Comprehensive Plan Map” in the Economic Element on pages 2, 11, and 27 of the Springfield
Comprehensive Plan.
• For consistency with Springfield Development Code, replace references to “Zoning Districts”
with “Land Use District”.
Exhibit A
Springfield Comprehensive Plan Amendments
Exhibit A, Page 1 of 53
Attachment 1 Page 5 of 169
Exhibit A-1
Springfield Comprehensive Plan Map
Exhibit A, Page 2 of 53
Attachment 1 Page 6 of 169
Exhibit A, Page 3 of 53
Attachment 1 Page 7 of 169
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Mill Race
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BrattainLearningCenter
Geogr
ap
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r
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Dept June
2023There are no warranties that accompany this product. Users assume all responsibility for
any loss or damage arising from any error, omission, or positional inaccuracy of this product.
1/4 Mi.1/80
Public Land and Open Space
Heavy Industrial
Booth-Kelly Mixed Use
Mixed Use
Commercial Mixed Use
Community Commercial
Plan Designations
Willamette Greenway Overlay
N N N Nodal Development Overlay
Plan Boundary
Downtown Refinement Plan
Exhibit A, Page 4 of 53
Attachment 1 Page 8 of 169
Q S t r e e t F l o o d w a y
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Butte
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Meadow
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Geogr
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any loss or damage arising from any error, omission, or positional inaccuracy of this product.
1/4 Mi.1/80
Mixed Use
High Density Residential
Medium Density Residential
Low Density Residential
Plan Designations
Plan Boundary
East Kelly Butte Refinement Plan
Exhibit A, Page 5 of 53
Attachment 1 Page 9 of 169
River
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Fork
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Volunteer
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Bluebelle
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Dept June
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any loss or damage arising from any error, omission, or positional inaccuracy of this product.
1/2 Mi.1/41/80
Public Land and Open Space
Mixed Use 2A & 2B
Mixed Use 2 & 3
Heavy Industrial
Light Medium Industrial
Community Commercial
Medium Density Residential
Low Density Residential
Plan Designations
Plan Boundary
Urban GrowthBoundary
East Main Refinement Plan
Exhibit A, Page 6 of 53
Attachment 1 Page 10 of 169
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RoyalDellePark
PacificPark
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Game Bird
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Guy Lee Elementary
Sacred Heart
RiverBend
Hospital
EWEB BIKE PAT
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Dept June
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any loss or damage arising from any error, omission, or positional inaccuracy of this product.
1/2 Mi.1/41/80
Public Land and Open Space
Light-Medium Industrial
General Office
Campus Industrial
Mixed Use (general)
Mixed Use - LMI/CC
Commercial Mixed Use
Community Commercial
Neighborhood Commercial
High Density Residential
Medium Density Residential
Low Density Residential
Plan Designations
N N N Nodal Development Overlay
Plan Boundary
Urban Growth
Boundary
Gateway Refinement Plan
Exhibit A, Page 7 of 53
Attachment 1 Page 11 of 169
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
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N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
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N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
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N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
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N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
RiverWillamette
Laurel
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James
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Eastgate
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Mill Race
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Park
Island
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FRANKL
IN
BLVD
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Dept June
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any loss or damage arising from any error, omission, or positional inaccuracy of this product.
1/2 Mi.1/41/80
Willamette Greenway Overlay
N N N Nodal Development Overlay
Public Land and Open Space
Employment Mixed Use
Light-Medium Industrial
Commercial/Industrial Mixed Use
Commercial Mixed Use
Office Mixed Use
Residential Mixed Use
Low Density Residential
Plan Designations
Multimodal Mixed Use Area
(area of 2014 Plan update)
Plan Boundary
Urban GrowthBoundary
Glenwood Refinement Plan
Exhibit A, Page 8 of 53
Attachment 1 Page 12 of 169
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
N N N N
River
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DouglasGardens Park
Pride
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Les Schwab
Sports
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Bob Keefer
Center
Tyson Park
Area
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Geogr
ap
hic Informa t i o n ServicesDevelopm e n t & Public W
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Dept June
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any loss or damage arising from any error, omission, or positional inaccuracy of this product.
1/2 Mi.1/41/80
Public Land and Open Space
Heavy Industrial
Light Medium Industrial
Community Commercial
Medium Density Residential
Low Density Residential
Plan Designations
N N N Nodal Development Overlay
Plan Boundary
Urban GrowthBoundary
Mid-Springfield Refinement Plan
Exhibit A, Page 9 of 53
Attachment 1 Page 13 of 169
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Hamlin
Middle
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any loss or damage arising from any error, omission, or positional inaccuracy of this product.
1/2 Mi.1/41/80
Public Land and Open Space
General Office
Community Commercial
Neighborhood Commercial
High Density Residential
Medium Density Residential
Low Density Residential
Plan Designations
Plan Boundary
Urban GrowthBoundaryQ Street Refinement Plan
Exhibit A, Page 10 of 53
Attachment 1 Page 14 of 169
Exhibit A, Page 11 of 53
Attachment 1 Page 15 of 169
Exhibit A, Page 12 of 53
Attachment 1 Page 16 of 169
Exhibit A, Page 13 of 53
Attachment 1 Page 17 of 169
Exhibit A, Page 14 of 53
Attachment 1 Page 18 of 169
Exhibit A, Page 15 of 53
Attachment 1 Page 19 of 169
Exhibit A, Page 16 of 53
Attachment 1 Page 20 of 169
Exhibit A, Page 17 of 53
Attachment 1 Page 21 of 169
Exhibit A-2 – Land Use Element of Springfield Comprehensive Plan
OVERVIEW
The Springfield Comprehensive Plan is currently being developed as Springfield’s new land use
comprehensive plan policy document applicable to Springfield’s jurisdictional area of the
Eugene-Springfield Metropolitan Area General Plan (Metro Plan) Plan. The purpose of this Land
Use Element is to inform long range land use planning and guide future development in
Springfield by describing how and where land will be developed to meet long term growth needs
while maintaining and improving community livability.
The land use policy direction established through adoption of the Land Use Element is focused
on establishing a property-specific Springfield Comprehensive Plan Map with plan designation
descriptions and related policies to support the map. The goal is to enable informed local
decision-making by providing a solid visual understanding of existing plans and policies related
to how land can be used within the Springfield Urban Growth Boundary (UGB). The policies and
implementation strategies are the City’s agreements and commitments to support the
Springfield Comprehensive Plan Map, such as where and how flexibility is allowed and how the
map can be maintained.
Statewide Planning Goal 2. Land Use Planning – To establish a
land use planning process and policy framework as a basis for all
decision and actions related to use of land and to assure an
adequate factual base for such decisions and actions.
RELATIONSHIP TO THE METRO PLAN, FUNCTIONAL PLANS &
REFINEMENT PLANS
The Springfield Comprehensive Plan Land Use Element was adopted by the City of Springfield
and Lane County as a city-specific comprehensive plan policy element to independently address
a planning responsibility that was previously addressed on a regional basis in the Metro Plan. 1
The Land Use Element goals, policies and implementation strategies replace the more general
Metro Area-wide goals, findings and policies contained in Metro Plan sections entitled “Metro
Plan Diagram” (Metro Plan II-G) for lands within the Springfield UGB. The Metro Plan establishes
a broad regional framework for Eugene, Springfield, and Lane County to coordinate
comprehensive planning within the Eugene-Springfield Metropolitan planning area. Metro Plan
Chapter I explains the relationship between city-specific comprehensive plans, the broad policy
framework of the Metro Plan and the regionally coordinated functional plans. The Springfield
Comprehensive Plan elements — including this Land Use Element — explicitly supplant the
relevant portion of the Metro Plan.
1 Metro Plan pp. iii-iv and Chapter II describes the incremental Metro planning area shift towards separate
Springfield and Eugene UGBs and city-specific comprehensive plans.
Exhibit A, Page 18 of 53
Attachment 1 Page 22 of 169
2 | L a n d U s e E l e m e n t
Neighborhood refinement plans provide additional guidance for implementing the Land Use
Element by establishing specific refinement plan policies and plan designations to achieve
Springfield’s land use objectives. Some Neighborhood Refinement Plans were created decades
ago and have not been fully updated to incorporate changes made through adoption of more
recent plans. For example, adoption of Springfield’s Transportation System Plan resulted in
changes to the functional classification of some streets which were not incorporated into the
Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally
prevails. Neighborhood Refinement Plans often have more specific policies than those in the
Comprehensive Plan due to more detailed analysis of neighborhood needs and aspirations. In
these cases, the more specifc or restrictive policies typically prevail. In the case of an actual
conflict between plan policies, the Springfield City Council has the authority to interpret the
provision that prevails, to give maximum effect to the overall policies and purposes of the
Springfield Comprehensive Plan.2.
The Springfield Comprehensive Plan Map portrays the community’s vision for future growth,
development, and redevelopment. The Land Use Element provides policy direction for updating
and amending refinement plans, zoning, and development regulations in conformance with this
vision. The City must continue to analyze the suitability and capacity of the existing plan
designations (also referred to as designations in this element) in terms of location, intensity and
mix of uses, design, and infrastructure. Based on more detailed and specific levels of analysis,
the City must amend the Springfield Comprehensive Plan and Comprehensive Plan Map as
necessary to address changing local conditions and/or new State law. Implementation of this
Land Use Element includes adoption of updates to land use refinement plans at the city-wide,
district, corridor, and neighborhood scales; City-initiated rezoning; and through property owner-
initiated plan amendment or zoning proposals.
SPRINGFIELD COMPREHENSIVE PLAN MAP
The Springfield Comprehensive Plan Map establishes property-specific plan designations within
the Springfield UGB. The map identifies the geographic locations and describes the physical
characteristics of plan designations, reflecting influences from sources including:
1. The Land Conservation and Development Commission’s (LCDC) Statewide Planning
Goals, as published in April 1977 and subsequently amended.
2. The Metro Plan, most recently published in 2019, and the Metro Plan Diagram, most
recently adopted in 2004 and subsequently amended. The Metro Plan Diagram is a
graphic depiction of: (a) the broad allocation of projected land use needs; and (b) goals,
objectives, and policies embodied in the text of the Metro Plan. The Metro Plan has long
called for the continued evolution to a property-specific diagram.
3. Adopted neighborhood refinement plans - The Springfield Comprehensive Plan Map
shows the specific neighborhood refinement plan designations for refinement plan
2 During the period of transition from Metro Plan to local comprehensive plans, Springfield’s “comprehensive plan” consists
of the acknowledged Metro Plan and the acknowledged Elements of the Springfield Comprehensive Plan.
Exhibit A, Page 19 of 53
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areas. Refer to the associated refinement plan for related policies and descriptions for
refinement plan designations, such as the multiple variations of mixed use.
4. Adopted special purpose and functional plans.
SPRINGFIELD URBAN GROWTH BOUNDARY
The location of the Springfield UGB is graphically depicted in the Springfield Urban Growth
Boundary Map and further described in the table entitled “List of tax lots which are adjacent to
and inside, or split by the UGB” and the document entitled “Summary of Methodology Utilized to
Refine the Location of the Springfield Urban Growth Boundary.” The table and methodology
document were added to the Metro Plan in 2011 as part of the adoption of the City of
Springfield’s city-specific UGB (through Springfield Ordinance No. 6268 and Lane County
Ordinance No. PA 1274 in 2011); and revised as part of the adoption of the UGB amendment in
2016 (through Springfield Ordinance No. 6361 and Lane County Ordinance No. PA 1304, Exhibit
C-2). In 2013, the Metro Plan Boundary on the east side of I-5 was made coterminous with the
Springfield UGB.3
PLAN DESIGNATIONS
Plan designations shown on the Springfield Comprehensive Plan Map are depicted at a property-
specific scale. The following section includes descriptions for base plan designations as well as
overlays that work in conjunction with the underlying base plan designation. Base plan
designations apply to each property within the Springfield UGB while overlays apply to a broader
area including public right-of-way. The overlays shown on the Springfield Comprehensive Plan
Map include Nodal Development Areas, Mixed Use Areas, and the Willamette Greenway.
Overlays apply to a broader area in order to implement regulations such as environmental and
recreational considerations related to the Willamette Greenway or considerations for
coordinated land use and transportation improvements related to Nodal Development Areas.
Used with the text from this Land Use Element and local plans and policies, the mapped plan
designations provide direction for decisions pertaining to appropriate land use and
development, reuse (redevelopment), and urbanization of property outside the city limits. Should
inconsistencies occur between the Springfield Comprehensive Plan Map and written text in local
plans and policies, the Springfield Comprehensive Plan Map prevails. Statements in this section
that prescribe specific courses of action regarding the community’s future should be regarded
as policies.
There are some instances where the boundaries of plan designations are flexible, as noted in
Policy LU.1 in this element, such as properties in the Jasper-Natron area as well as properties
with or near Public Land and Open Space designations that generally follow natural features,
such as waterways (e.g., the Mill Race, Island Park Slough). Refer to Policy LU.1 in this element
3 Springfield Ord. 6288, Eugene Ord. 20511, and Lane County Ord. PA 1281
Exhibit A, Page 20 of 53
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for more information about where flexibility is allowed and what criteria are used to establish the
exact location of plan designation boundaries in these instances.
Residential
This category is expressed in gross acre density ranges. Using gross acres, approximately 32
percent of the area is available for auxiliary uses, such as streets, elementary and middle
schools, neighborhood parks, other public facilities, neighborhood commercial services, and
place of worship not actually shown on the Comprehensive Plan Map. Such auxiliary uses are
allowed within residential designations if compatible with refinement plans and the Springfield
Development Code. The division into low, medium, and high densities is consistent with that
depicted on the Comprehensive Plan Map. In other words:
• Low density residential—Through 10 units per gross acre
• Medium density residential—Over 10 through 20 units per gross acre
• High density residential—Over 20 units per gross acre
These ranges do not prescribe particular structure types, such as single unit detached dwelling,
duplex, triplex, fourplex, townhome, cottage cluster, manufactured dwelling, or multiple unit
housing. That distinction, if necessary, is left to the Springfield Development Code. In
conformance with state law, these density ranges do not apply to middle housing types, such as
duplexes, triplexes, fourplexes, cottage cluster housing, and townhomes.4
While all medium and high density allocations shown on the Comprehensive Plan Map may not
be needed during the planning period, their protection for these uses is important because
available sites meeting pertinent location standards are limited.
Commercial
Major Retail Centers
Such centers normally have at least 25 retail stores, one or more of which is a major anchor
store, having at least 100,000 square feet of total floor space. They sometimes also include
complimentary uses, such as general offices and medium and high density housing.
4 For purposes of housing development, ORS 197.758, ORS 92.031, and ORS 197.308, override comprehensive plan
provisions. ORS 197.758 (adopted by House Bill 2001 in 2019) compels the City to amend its development code to
conform to state law for middle housing. ORS 92.031 (adopted by House Bill 45 8) compels the City to approve land
divisions for said middle housing. ORS 197.308 (adopted by Senate Bill 8 in 2021) compels the City to apply density
and height bonuses to development of affordable housing as defined in that statute. Thus, the code provi sions
adopted by Ordinance 6443 demanded by statute, override any conflicting comprehensive plan policy or provision.
Exhibit A, Page 21 of 53
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Community Commercial Centers
This category includes more commercial activities than neighborhood commercial but less than
major retail centers. Such areas usually develop around a small anchor retail store. The
development occupies at least five acres and normally not more than 40 acres. This category
contains such general activities as retail stores; personal services; financial, insurance, and real
estate offices; private recreational facilities, such as movie theaters; and hospitality-related
facilities, such as hotels. When this category is shown next to medium or high density
residential, the two can be integrated into a single overall complex, local regulations permitting.
Neighborhood Commercial Facilities This designation was not shown on the Metro Plan Diagram
as these land uses were not individually of metropolitan-wide significance in terms of size or
location because of their special nature or limited extent. However, this designation is shown on
the Gateway and Q Street neighborhood refinement plan diagrams and is shown on the
Comprehensive Plan Map accordingly. Neighborhood Commercial facilities are not limited to
these neighborhood refinement plan areas, but may be allowed elsewhere according to the
policies stated below.
Oriented to the day-to-day needs of the neighborhood served, these facilities are usually
centered on a supermarket as the principal tenant. They are also characterized by convenience
goods outlets (small grocery, variety, and hardware stores); personal services (medical and
dental offices, barber shops); laundromats; and taverns and small restaurants. The
determination of the appropriateness of specific sites and uses is based on the following
location standards and site criteria:
1. Within convenient walking or bicycling distance of an adequate support population.
For a full-service neighborhood commercial center at the high end of the size criteria, an
adequate support population would be about 4,000 persons (existing or anticipated)
within an area conveniently accessible to the site. For smaller sites or more limited
services, a smaller support population or service area may be sufficient.
2. Adequate area to accommodate parking and loading needs and landscaping,
particularly between the center and adjacent residential property, as well as along street
frontages next door to outdoor parking areas.
3. Sufficient frontage to ensure safe and efficient automobile, pedestrian and bicycle
access without conflict with moving traffic at intersections and along adjacent streets.
4. The site must be no more than five acres, including existing commercial development.
The exact size depends on the numbers of establishments associated with the center
and the population to be served.
Neighborhood commercial facilities may include community commercial centers when the latter
meets applicable location and site criteria as listed above, even though community commercial
centers are generally larger than five acres in size.
Exhibit A, Page 22 of 53
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In certain circumstances, convenience grocery stores or similar retail operations play an
important role in providing services to existing neighborhoods. These types of operations which
currently exist can be recognized and allowed to continue through such actions as rezoning.
Mixed Uses
This category represents areas where more than one use might be appropriate, usually as
determined by refinement plans. Mixed Use is a base plan designation in refinement plan
areas, except for the Multimodal Mixed Use Area in Glenwood, which is an overlay that works in
conjunction with the base plan designations.
For areas outside of refinement plans, Mixed Use is an overlay designation. There are multiple
variations of Mixed Use designations shown on the Comprehensive Plan Map; however, the
related plan designation descriptions and policies can be found in the applicable neighborhood
refinement plan. In the absence of a neighborhood refinement plan, the underlying plan
designation determines the predominant land use.
Industrial
Heavy Industrial
This designation generally accommodates industries that process large volumes of raw
materials into refined products and/or that have significant external impacts. Examples of
heavy industry include: lumber and wood products manufacturing; paper, chemicals and
primary metal manufacturing; large-scale storage of hazardous materials; power plants; and
railroad yards. Such industries often are energy-intensive and resource-intensive. Heavy
industrial transportation needs often include truck and rail. This designation may also
accommodate light and medium industrial uses and supporting offices.
Light Medium Industrial
This designation accommodates a variety of industries, including those involved in the
secondary processing of materials into components, the assembly of components into finished
products, transportation, communication and utilities, wholesaling, and warehousing. The
external impact from these uses is generally less than Heavy Industrial, and transportation
needs are often met by truck. Activities are generally located indoors, although there may be
some outdoor storage. This designation may also accommodate supporting offices and light
industrial uses.
Exhibit A, Page 23 of 53
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Campus Industrial
The primary objective of this designation is to provide opportunities for diversification of the
local economy through siting of light industrial firms in a campus-like setting. The activities (e.g,
manufacturing, storage of materials) of such firms must be obscured from public view and have
external impacts less than or equal to office uses, such as noise, pollution, and vibration. Large-
scale light industrial uses, including regional distribution centers and research and development
complexes, are the primary focus of this designation. Provision should also be made for small
and medium scale industrial uses within the context of industrial and business parks which will
maintain the campus-like setting with minimal environmental impacts. Complementary uses
such as corporate office headquarters and supporting commercial establishments serving
primary uses may also be sited on a limited basis.
Conceptual development planning, performance standards, or site review processes must be
applied to ensure adequate circulation, functional coordination among uses on each site, a high
quality environmental setting, and compatibility with adjacent areas. A 50-acre minimum lot size
shall be applied to ownerships of 50 or more acres to protect undeveloped sites from piecemeal
development until a site development plan has been approved.
Special Heavy Industrial
These areas are designated to accommodate relocation of existing heavy industrial uses inside
the Springfield UGB that do not have sufficient room for expansion and to accommodate a
limited range of other heavy industries in order to broaden the manufacturing base of the
metropolitan economy and to take advantage of the natural resources of this region. These
areas are also designated to accommodate new uses likely to benefit from local advantage for
processing, preparing, and storing raw materials, such as timber, agriculture, aggregate, or by-
products or waste products from other manufacturing processes.
Land divisions in these areas must be controlled to protect large parcels (40-acre minimum
parcel size).
This designation accommodates industrial developments that need large parcels, particularly
those with rail access. Although a primary purpose of this designation is to provide sites for
heavy industries, any industry which meets the applicable siting criteria may make use of this
designation.
Public Land and Open Space
This designation contains three categories:
• Government uses (includes major office complexes and facilities/utilities)
• Educational uses (includes secondary schools and post-secondary schools and career
training)
Exhibit A, Page 24 of 53
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• Parks and Open Space uses
This designation includes publicly owned metropolitan and regional scale parks and publicly and
privately owned golf courses and cemeteries in recognition of their role as visual open space.
This designation also includes other privately owned lands in response to Metro Plan policies.
Where public land and open space is designated on privately owned agricultural land, those
lands must be protected for agricultural use in accordance with the applicable comprehensive
plan policies.
Where public land and open space is designated on forest lands inside the UGB, other values
have primary importance over commercial forest values and those park and open space areas
must be protected for those primary values.
Some Public Land and Open Space designations are shown at a neighborhood scale. As noted in
the description of residential designations, elementary and junior high schools, neighborhood
parks, and other public facilities are allowed on land designated for residential uses. In some
cases where there are environmental constraints such as excessive slopes, or assets such as
unique vegetation, the Public Land and Open Space designation may be applied to land that is
not yet in public ownership. Those lands should be preserved, if possible, through public
acquisition or tax relief programs. If that is not possible, development should be required to
respond to their unique conditions through clustering in areas of least value as open space,
locating circulation and access points in a manner that will result in minimal disturbance of
natural conditions and other similar measures particularly sensitive to such sites.
Natural Resource
This designation applies to privately and publicly owned lands where development and
conflicting uses must be prohibited to protect natural resource values. These lands must be
protected and managed for the primary benefit of values, such as fish and wildlife habitat, soil
conservation, watershed conservation, scenic resources, passive recreational opportunities,
vegetative cover, and open space.
The City must apply appropriate implementation measures to protect these areas and to direct
development toward buildable lands adjacent to natural resource areas (master planning is a
suitable technique for balancing conservation of natural resources and need for development).
Where agricultural or forest practices have been identified as a conflicting use incompatible with
protection of the primary values of the identified natural resource, those practices must be
prohibited.
Sand and Gravel
This designation includes existing aggregate processing and extraction areas and may be
applied to areas with such potential. Aggregate extraction and processing is allowed in
designated areas subject to Metro Plan policies, applicable state and federal regulations, and
local regulations. For new extraction areas, reclamation plans required by the State of Oregon
Exhibit A, Page 25 of 53
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and Lane County provide a valuable means of assuring that environmental considerations, such
as re-vegetation, are addressed. It is important to monitor the demand for aggregate to ensure
an adequate supply of this vital non-renewable resource is available to meet metropolitan
needs.
Urban Holding Area – Employment
The Urban Holding Area – Employment (UHA-E) designation identifies urbanizable areas within
the Springfield UGB to meet Springfield’s long term employment land needs for the 2010-2030
planning period. The UHA-E designation reserves an adequate inventory of employment sites,
including sites 20 acres and larger, that are suitable for industrial and commercial mixed use
employment uses that generate significant capital investment and job creation within — but not
limited to — targeted industry sectors, business clusters and traded-sector industries identified
in the most recent Springfield economic opportunities analysis and Springfield Comprehensive
Plan Economic Element policies.
Lands designated UHA-E are protected from land division and incompatible interim development
to maintain the land’s potential for planned urban development until appropriate urban facilities
and services are planned or available and annexation to Springfield can occur, as described in
the Springfield Comprehensive Plan Urbanization Element. The UHA-E designation remains in
effect until the appropriate employment designation is adopted through a City-initiated planning
process or an owner-initiated plan amendment process.
Nodal Development Area (Node) Overlay
Nodal development is a mixed-use, pedestrian-friendly land use pattern that seeks to increase
concentrations of population and employment in well-defined areas with good transit service, a
mix of diverse and compatible land uses, and public and private improvements designed to be
pedestrian and transit oriented.
Fundamental characteristics of nodal development require:
• Design elements that support pedestrian environments and encourage transit use,
walking and bicycling;
• Transit access within walking distance (generally ¼ mile) of anywhere in the node;
• Mixed uses and a core commercial area so that services are available within walking
distance;
• Public spaces, including parks, public and private open space, and public facilities, that
can be reached without driving; and
• A mix of housing types and residential densities that achieve an overall net density of at
least 12 units per acre.
Exhibit A, Page 26 of 53
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Willamette River Greenway Overlay
The Willamette River Greenway Boundary is shown on the Comprehensive Plan Map as an
overlay. Refer to Metro Plan Chapter III-D for information, findings, and policies related to the
Greenway.
Mixed Use Area Overlay
Refer to the Mixed Use designation description provided earlier in this section on page 6.
Mixed Use is implemented as a base plan designation in refinement plan areas, except for
the Multimodal Mixed Use Area in Glenwood which is an overlay designation that works in
conjunction with the base plan designations. For areas outside of refinement plans, Mixed
Use is implemented as an overlay and the underlying base plan designation determines the
predominant land use.
SPRINGFIELD LAND USE PLANNING GOALS
Goal LU-1 Enable informed local decision-making with a property-specific
Springfield Comprehensive Plan Map that provides a solid visual understanding of
existing plans and policies related to how land can be used within the Springfield
UGB.
The Land Use Element implements and interprets these goals and principles through the
following Land Use Policies and Implementation Strategies:
SPRINGFIELD LAND USE POLICIES & IMPLEMENTATION
STRATEGIES
Policy LU.1 The Springfield Comprehensive Plan Map shows property-specific plan designations
for each property within the Springfield UGB, except in the instances where flexibility is allowed
as described below:
a. Jasper-Natron: Properties with split plan designations in the Jasper-Natron area (extent
of the Springfield UGB generally south of Quartz Avenue as shown in the map image on
the following page) have ambiguous boundaries between plan designations.
Exhibit A, Page 27 of 53
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Clarifying and determining specific boundaries of plan designations in this area will be
considered as part of master plans, land divisions, or site plan review, without requiring a
separate application or fee to process a plan amendment or zone change. This site-
specific determination allows for considerations in response to development or site
configuration (e.g., buildings, streets, or infrastructure) or development constraints (e.g.,
wetlands, slopes, or easements).
Once a plan designation boundary in this area is clarified and made specific, this option
for flexibility will no longer apply to that boundary, as this policy is only intended for areas
where ambiguity remains. Determinations of specific plan designation boundaries must
meet the following criteria:
o Boundaries between plan designations as currently shown on the Springfield
Comprehensive Plan Map in this area must not be adjusted by:
▪ More than 20% of the total property acreage for properties 5 acres or
larger.
▪ More than 300 feet for properties smaller than 5 acres.
o Shifts in boundaries must maintain the acreage of sites identified as having
redevelopment potential in the adopted Commercial and Industrial Buildable
Lands Inventory. 5
o Shifts in boundaries must maintain the general configuration of plan designations
for vacant, partially vacant, and potentially redevelopable sites as shown on
maps in the adopted buildable lands inventories (e.g., keep industrial
designations clustered together and not interspersed with residential
designations). 6
o Shifts in boundaries must maintain or create consistency between plan
designations on the Comprehensive Plan Map and land use districts on the
Zoning Map. The land use district boundary on the Zoning Map will shift to align
with any clarifications in the plan designation boundary. Shifts must continue to
meet land use district development standards for lot area, dimensions, and
coverage (e.g. minimum lot/parcel size) in the Springfield Development Code.
5 See Table 2-12: Site-by-site review of parcels with redevelopment potential (on PDF page 55) in the adopted
Springfield Commercial and Industrial Buildable Lands Inventory.
6 For commercial and industrial plan designations, see Map 2-3: Vacant Commercial and Industrial land (on PDF
page 46) in the in the adopted Springfield Commercial and Industrial Buildable Lands Inventory. For residential
plan designations, see Map 3-1: Residential Land by Plan Designation (on PDF page 44) in the adopted Springfield
Residential Land and Housing Needs Analysis.
Exhibit A, Page 28 of 53
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Jasper-Natron Vicinty
b. Public Land and Open Space near natural resources: Properties that have a partial Public
Land and Open Space designation or are adjacent to Public Land and Open Space
designations that intend to follow certain natural resources including the Mill Race and
adjacent Mill Pond (based on the old extent of the Mill Pond as shown on the Downtown
Refinement Plan Diagram), Island Park Slough, and Jasper Slough have ambiguous
boundaries between plan designations. For reference, these resources are shown on the
Water Quality Limited Waterways map.
Clarifying and determining specific boundaries of plan designations in this area will be
considered as part of master plans, land divisions, or site plan review, without requiring a
separate application or fee to process a plan amendment or zone change, in order to
allow for considerations in response to development or site configuration (e.g., buildings,
streets, or infrastructure) or development constraints (e.g., wetlands, slopes, or
easements).
Exhibit A, Page 29 of 53
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Once a plan designation boundary in these areas is clarified and made specific, this
option for flexibility will no longer apply to that boundary unless the natural resource
changes location or configuration. Clarifying and determining specific plan designation
boundaries must meet the following criteria:
o The Public Land and Open Space plan designation boundary will shift to align with
riparian areas, wetland delineations, or top of bank for Water Quality Limited
Watercourses.
o Shifts in boundaries must maintain the acreage of sites identified as having
redevelopment potential in the adopted Commercial and Industrial Buildable
Lands Inventory. 7
o Shifts in boundaries must maintain the general configuration of plan designations
of vacant, partially vacant, and potentially redevelopable sites as shown on maps
in the adopted buildable lands inventories. 8
Implementation Strategy 1.1: Amend Section SDC 3.1.115 to add alignment of a land
use district boundary to match the plan designation boundary as one of the
criteria the Director may use to determine the location of a land use district
boundary that is uncertain.
Implementation Strategy 1.2: Amend SDC 3.1.115 to allow for shifts in land use district
boundaries to match the plan designation boundaries that are clarified through
the process allowed by this policy.
Policy LU.2 Public right-of-way is not assigned a base plan designation; however, overlays
shown on the Comprehensive Plan Map will continue to apply to public right-of-way.
Vacated public right-of-way is incorporated into the abutting property, typically to the centerline.
However, in cases where only one abutting property dedicated right-of-way, all the vacated
rights-of-way would be incorporated into that property. In any case, the vacated right-of-way
acquires the base plan designation of the abutting property, without the need of a separate
Comprehensive Plan Map amendment.
Implementation Strategy 2.1: Consider amending the Springfield Development Code and
Zoning Map to reflect that public rights-of-way are not assigned a base land use district.
7 See Table 2-12: Site-by-site review of parcels with redevelopment potential (on PDF page 55) in the adopted
Springfield Commercial and Industrial Buildable Lands Inventory.
8 For commercial and industrial plan designations, see Map 2-3: Vacant Commercial and Industrial land (on PDF
page 46) in the in the adopted Springfield Commercial and Industrial Buildable Lands Inventory. For residential
plan designations, see Map 3-1: Residential Land by Plan Designation (on PDF page 44) in the adopted Springfield
Residential Land and Housing Needs Analysis.
Exhibit A, Page 30 of 53
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Policy LU.3 Encourage alignment of plan designations on the Comprehensive Plan Map and
land use districts on the Zoning Map.
Implementation Strategy 3.1: Explore plan/zone conflicts when addressing land needs
identified in updates to the buildable lands inventories.
Implementation Strategy 3.2: Continue to encourage property owners to rezone their property
in conformance with the plan designation by offering application fee waivers or reductions.
Policy LU.4 Allow for administrative adjustments and minor adjustments to the Springfield
Comprehensive Plan Map without requiring a legislative plan amendment.
a. Show minor adjustments to plan designation boundaries that have been approved in a
land use decision.
b. Show gradual changes to property boundaries caused by the migration of waterways:
o Where a plan designation boundary is the McKenzie River or Willamette River, the
plan designation boundary will shift with changes to the Ordinary High-Water Line
(OHWL), except when a change to the OHWL is caused by a sudden, catastrophic
change in the river’s course.
o Where a plan designation boundary is the centerline of a non-navigable stream,
the plan designation boundary will follow changes to the stream centerline as
minor changes occur.
c. Allow correction of cartographic errors, such as minor shifts in the display of property
lines and other map features resulting from updates to mapping projections. This does
not include changes in property lines as a result of a land use application.
Implementation Strategy 4.1 The City will make routine administrative updates to the
Springfield Comprehensive Plan Map and will document the date the map was updated and
any related land use decisions and post-acknowledgement plan amendments that have been
incorporated since the last map update.
Exhibit A, Page 31 of 53
Attachment 1 Page 35 of 169
OVERVIEW
The Springfield 2030 Refinement Plan Residential Land Use & Housing Element addresses
Statewide Planning Goal 10: Housing, “To provide for the housing needs of the citizens of the state.”
This element includes goals, objectives, policies and implementation actions that are consistent with
and carry out the Eugene‐Springfield Metropolitan Plan Residential Land Use and Housing Element
(Chapter III‐A), while demonstrating the City’s ongoing commitment to increasing housing choice and
residential densities within Springfield’s separate Urban Growth Boundary.
Together, Goal 10 and Oregon’s “needed housing” statutes require that Springfield provide a 20‐
year buildable land supply within a separate Urban Growth Boundary (UGB) to meet the housing
needs of current and future residents. The policies in this element have their basis in the Residential
Land Study conducted by the City 2007‐2010. The residential buildable land inventory and technical
analysis is contained in a Technical Supplement to this plan—the Springfield Residential Land and
Housing Needs Analysis (RLHNA). The RLHNA is an analysis of land supply and housing demand
prepared for the City of Springfield by ECONorthwest, April 2011 that incorporates input from
citizens, stakeholder groups, commissions and elected officials received throughout a multi‐year
citizen involvement process that included a Residential Lands advisory committee, online public
surveys, community workshops, work sessions, open houses and public hearings. The RLHNA and
this element demonstrate compliance with Goal 10 and related “needed housing” statutes
(especially ORS 197.296 and 197.304). The factors reviewed to develop a projection of future
housing demand include historical development trends, residential development trends, and trends
in housing mix and tenure; density; the projected number, type and size of households; and the
demographic characteristics of the population.
ORS 197.303 requires Springfield to demonstrate as required by ORS 197.296 that its
comprehensive plan provides sufficient buildable lands to accommodate needed housing for 20
RESIDENTIAL
LAND USE &
HOUSING
ELEMENT
2
28 |
Exhibit A-3 - Amendments to the Springfield Comprehensive Plan's Residential Land Use and
Housing Element and Urbanization Element Exhibit A, Page 32 of 53
Attachment 1 Page 36 of 169
years. The policies in this chapter establish Springfield’s long‐term policies and shorter‐term
strategies for meeting Springfield’s identified housing needs for the plan period 2010 ‐2030. The
provisions in this plan supplement, refine and support policies contained in the Eugene‐Springfield
Metropolitan Plan Residential Land Use and Housing Element and are applicable only within the
Springfield UGB. The goals, policies and implementation actions were developed to respond to the
findings in the RLHNA in ways that best implement Springfield’s preferred residential land use
growth management strategies — as identified and prioritized through the public involvement
process. The policies and implementation actions in this element support a 20% increase in density
over the historical development pattern by facilitating more dense development patterns. In those
instances where findings and policies in this element differ quantitatively from policies in the Metro
Plan Residential Land Use and Housing Element, the Springfield 2030 Refinement Plan Residential
Land Use & Housing Element policies shall prevail. Issues not addressed in this element are
addressed in the Metro Plan Residential Land Use and Housing Element.
The policies in this element provide direction for Springfield in updating refinement plans, zoning and
development regulations to address the community’s housing needs. As Springfield implements this
element of the Springfield 2030 Refinement Plan — through future land use refinement plan
updates at the city‐wide, district, neighborhood, and corridor scale—the City shall continue to analyze
the suitability of residential and residential mixed use designations in terms of density and location
and, based on this analysis, may propose changes to the Springfield Comprehensive Plan Map Metro
Plan Diagram and Springfield 2030 Refinement Plan Diagram. The Springfield 2030 Refinement
Plan Land Use and Urban Design Element policies establish physical characteristics of Springfield’s
residential and mixed use neighborhoods and includes criteria for locating non‐residential
supporting uses, such as Neighborhood Commercial and Neighborhood Mixed Use land uses within
or adjacent to residential districts of the City.
METRO AREA HOUSING GOAL
The 2004 Update of the Eugene‐Springfield Metropolitan Area General Plan includes a Residential
Land Use and Housing Element that articulates the region’s housing goals and objectives. The
Metro Plan lists a single residential land and housing goal:
Provide viable residential communities so all residents can choose
sound, affordable housing that meets individual needs.
The Springfield 2030 Refinement Plan implements, interprets, and supplements this goal as follows:
SPRINGFIELD RESIDENTIAL LAND & HOUSING GOALS
HG‐1 Plan for Growth and Needed Housing
RESIDENTIAL LAND USE & HOUSING ELEMENT 29 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 33 of 53
Attachment 1 Page 37 of 169
As documented in the RLHNA, the land currently designated for High, Medium and Low Density
Residential and Nodal Mixed Use plan designations will accommodate Springfield’s expected need
for residential development and redevelopment.
Springfield’s residential and mixed use districts —as depicted in the Springfield Comprehensive Plan
Map Metro Plan diagram and Springfield refinement plans and as proposed in the Implementation
Strategies in this element—provide a residential land base with sufficient capacity for the market to
develop adequate numbers of needed housing units to meet expected demand through 2030. In
2010, there was a surplus of buildable land in both the Low and Medium Density Residential
designations; however, there was a deficit in the High Density Residential designation of 28 gross
buildable acres. With a mandatory commitment to amend the Glenwood Refinement Plan by 2012,
Springfield has adopted an effective measure to ensure that the City’s separate UGB will include
enough buildable land to satisfy Springfield’s projected housing needs by type and density range, as
determined in the RLHNA.
The residential and mixed use designations and the policies adopted in this element are of sufficient
specificity to accommodate the varying housing types and densities identified in the Springfield
Residential Land and Housing Needs Analysis.
HG‐2 Foster Housing Choice and Affordability
The Metro Plan and Springfield 2030 Refinement Plan Springfield Comprehensive Plan Map
designates land for residential use and mixed use to provide a range of housing choices for people of
all incomes and household types. Projecting the types of housing that will be built for the next 20
years is complex. Housing choices of individual households are influenced in complex ways by
dozens of factors. Springfield’s housing market is influenced by the regional Lane County housing
market and is the result of the individual decisions of thousands of households.
The City is committed to making sure that community residents enjoy access to decent housing. This
commitment goes well beyond the statutory requirement to maintain a 20‐year supply of residential
land within Springfield’s separate UGB. The policies in this element promote and support housing
choice and affordability. The availability of affordable housing choices for different types of
households is a key component of a livable community. The location of housing in relation to jobs,
shopping, transportation and other services significantly impacts quality of life.
HG‐3 Encourage Housing Diversity & Quality Neighborhoods
The demographic make‐up of households in Springfield is changing. The average age of city
residents is increasing, and fewer households have children. The average age of a Springfield
resident is younger than the Lane County average, even as the Lane County average is trending
older. Household size has continued to shrink, though more slowly in the 1990’s than in previous
30 | R e s i d e n t i a l L a n d U s e & H o u s i n g E l e m e n t
Exhibit A, Page 34 of 53
Attachment 1 Page 38 of 169
development (21 acres/270 DU in the Glenwood Riverfront); and 3) land within approved
master‐planned sites with capacity for residential development (730 DU in RiverBend and
518 DU in Marcola Meadows). A map of these tax lots appears as Map 3‐2 in the RLHNA.
8. Owners of residentially planned land in the buildable land inventory as identified herein or as
amended pursuant to Oregon post‐acknowledgement plan amendment procedures are
entitled to residential zoning that matches the plan designation. The City's Development
Services Department has an existing process in place to rezone property with plan‐zone
conflicts at no cost to the property owner (3 times/year).
9. Springfield will need to provide about 5,920 new dwelling units to accommodate growth
between 2010 and 2030 plus 291 group quarter dwellings for a total 6,211 dwelling units. For
non‐group quarter dwellings, about 3,552 dwelling units (60%) will be single‐family types,
which include single‐family detached, manufactured dwellings, and single‐family attached
housing. About 2,368 units (40%) will be multi‐family housing.
10. The results of the RLHNA indicate that Springfield has an overall surplus of residential land, but
has deficits in the High Density Residential and Parks and Open Space27 categories. The
Springfield UGB has enough land for 9,018 new dwelling units. There is sufficient buildable
land in Springfield’s UGB designated for low and medium density residential uses to meet the
future housing needs of the projected population.
The Low Density Residential designation has a surplus of approximately 378 gross acres.
The Medium Density Residential designation has a surplus of approximately 76 gross
acres.
11. There is not enough buildable land in Springfield’s UGB designated for high density residential
uses within the existing Springfield UGB to meet the future housing needs of the projected
population. The High Density Residential designation has a deficit of approximately 28 gross
acres. At a minimum, the City will meet the high density residential land deficit of 28 acres
(including 7 acres of HDR designated land to provide public open space for the higher density
development, as well as any needed public facilities) through its redevelopment strategies in
Glenwood.
12. The Parks and Open Space28 designation has a deficit of 300 acres. This need does not
require the City to expand the UGB for parks and open space. The City has a surplus of
buildable lands in the low and medium density residential plan designations that can provide
land for future parks within those designations, consistent with the objectives of the adopted
Park and Recreation Comprehensive Plan. A portion of the parks and open space need can
27 The Springfield Comprehensive Plan was amended to reflect adoption of the Springfield Comprehensive Plan
Map, which renamed the “Parks and Open Space” designation to be “Public Land and Open Space.” These
amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in
2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance PA 1390 and Ordinance 23-07).
28 IBID RESIDENTIAL LAND USE & HOUSING ELEMENT 39 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 35 of 53
Attachment 1 Page 39 of 169
OVERVIEW
The Springfield 2030 Comprehensive Plan (2030 Plan) is currently being developed as
Springfield’s new land use comprehensive plan policy document applicable to Springfield’s
jurisdictional area of the Metro Plan. The Springfield Comprehensive Plan Urbanization Element is
the chapter of the 2030 Plan that guides future development in Springfield by describing how and
where land will be developed and infrastructure provided to meet long term growth needs while
maintaining and improving community livability. The purpose of the Urbanization Element is to
inform and guide long range land use and public facilities planning to address Springfield’s land
needs for the planning period 2010-2030 in compliance with Statewide Planning Goal 14,
Urbanization.
Statewide Planning Goal 14. Urbanization - To provide for an orderly and
efficient transition from rural to urban land use, to accommodate population and
urban employment inside urban growth boundaries, to ensure efficient use of
land, and to provide for livable communities.
Oregon law requires cities and counties to establish and maintain urban growth boundaries (UGBs)
for urban areas to provide land for urban development needs and to identify and separate urban
and urbanizable land from rural land. The land within the UGB includes “urban” lands within the
incorporated City and “urbanizable lands29” — those lands that are within the UGB but have not yet
been annexed to the City. Urbanizable lands are considered to be available for urban development
29 Oregon’s Statewide Planning Goals & Guidelines define “urbanizable land” as “Urban land that, due to the
present unavailability of urban facilities and services, or for other reasons, either: (a) Retains the zone designations
assigned prior to inclusion in the boundary, or (b) Is subject to interim zone designations intended to maintain the land’s
potential for planned urban development until appropriate public facilities and services are available or planned.”
5
URBANIZATION
ELEMENT 44 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 36 of 53
Attachment 1 Page 40 of 169
consistent with plans for the provision of urban facilities and services. The City and Lane County
are required to co-adopt comprehensive plan policies, zoning, and development code provisions to
regulate land uses and land divisions of urbanizable lands to maintain their potential for planned
urban development until adequate public facilities and services necessary for urban level of
development are available or planned.
The Urbanization Element establishes the comprehensive plan policies and zoning applicable to
urbanizable lands within Springfield’s Urban Growth Boundary (UGB) that are necessary to
efficiently and effectively plan and manage the land supply as land uses transition from rural to
urban. This policy direction is based on the need to:
▪ Designate a 20-year supply of urbanizable land to accommodate population and
employment growth.
▪ Allow and regulate interim land uses that do not impede future development of
planned urban land uses and densities.
▪ Plan for the orderly and efficient extension of public facilities and services.
▪ Designate land for community open space and recreational needs.
▪ Designate land to provide and manage the public facilities and environmental
services needed to serve Springfield’s urban area.
▪ Manage growth and improve community livability through increasingly efficient use of land
consistent and compatible with the community’s needs, resources, opportunities and
advantages within the broader Southern Willamette Valley region.
The policy direction provided by the Urbanization Element guides comprehensive planning
coordination, zoning and land use regulation within the UGB, including:
▪ Future refinement planning and zoning at the more detailed level of
neighborhood, district (e.g. Gateway), or corridor;
▪ Future regional and local transportation, infrastructure and capital improvement
planning;
▪ Future comprehensive plan, zoning and Springfield Development Code
amendments;
▪ Review of property owner-initiated land use proposals; and
▪ Review of property owner-initiated land use applications including annexation requests.
SPRINGFIELD URBANIZATION PLANNING GOALS
The following Urbanization Element Planning Goals express the desired community development
outcomes and benefits the City aspires to achieve by planning and managing land in new growth
areas of the City.
URBANIZATION ELEMENT 45 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 37 of 53
Attachment 1 Page 41 of 169
Promote compact, orderly and efficient urban development by guiding future growth to
vacant sites and redevelopment areas within the established areas of the city, and to
urbanizable lands where future annexation and development may occur.
Promote efficient and economical patterns of mixed land uses and development
densities that locate a variety of different life activities, such as employment, housing,
shopping and recreation in convenient proximity; and where accessible by multiple
modes of transportation — including walking, bicycling, and transit in addition to motor
vehicles —within and between neighborhoods and districts.
Provide adequate level of urban services, including but not limited to public water,
wastewater, stormwater management systems, environmental services and an urban
multi-modal transportation system as urban development occurs within the Springfield
UGB.
As the City grows and as land develops, maintain and reinforce Springfield’s identity as
a river-oriented community by emphasizing and strengthening physical connections
between people and nature in the City’s land development patterns and infrastructure
design.
Increase Springfield’s capability to respond to natural hazard impacts and to enhance
public safety, health and robustness of the economy and natural environment. Create
opportunities for innovative urban development and economic diversification.
MANAGING URBAN TRANSITION
Springfield manages the orderly and efficient transition of land from rural to urban to
implement the Urbanization Planning Goals through application of the following planning
policies, implementing ordinances, tools and procedures:
▪ The Urban Growth Boundary
▪ Comprehensive plan designations and policies
▪ Springfield Zoning Map
▪ Springfield Development Code land use regulations and development standards—including
the Annexation process
▪ Planned provision of urban facilities and services:
- Metropolitan Public Facilities and Services Plan
- Springfield Wastewater and Stormwater Master Plans
- Springfield Transportation System Plan
- Springfield Capital Improvement Program
UG-1
UG-2
UG-3
UG-4
UG-5
46 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 38 of 53
Attachment 1 Page 42 of 169
SPRINGFIELD URBAN GROWTH BOUNDARY
The Springfield UGB establishes a 20-year supply of land based on demonstrated need to
accommodate long range population growth and demonstrated need for housing, employment
opportunities, livability and uses such as public facilities, streets and roads, schools, parks or
open space.
The UGB is mapped and specifically delineated along its entire circumnavigation of the city. The
UGB is graphically depicted in the “Springfield Urban Growth Boundary map.” The UGB Technical
Supplement 30 to the Urbanization Element provides documentation to more precisely describe
the parcel-specific boundary location — a description of the methodology used by Springfield to
prepare the precise UGB location using contemporary Geographic Information Systems (GIS)
technology, previous urban growth boundary location descriptions, surveys, applicable sections
of the ORS and OARs and related land use decisions; and a list of tax lots that are split by the
UGB. Where existing and planned right-of-way comprise portions of the UGB, the full width of that
right-of-way lies within the UGB, except along the western track where the boundary is mapped
and described as the center line of Interstate Highway 5 between the north-bound and south-
bound lanes.
Springfield’s urban and urbanizable area extends approximately 5 miles from north (Gateway) to
south (Glenwood McVay corridor) along the Interstate Highway 5 corridor as it travels through the
Eugene-Springfield metro area; and approximately 8.6 miles from west to east as measured
along the Franklin Boulevard-Main Street Corridor-McKenzie Highway from the Interstate Highway
5 Willamette River bridge to the easternmost point of the UGB. The Springfield UGB includes
most but not all land between the McKenzie River on the north and the Middle Fork Willamette
River on the south. The eastern portion of the UGB includes the Thurston South Hills and follows
the ridgeline south and west to Jasper Road to encompass the area known locally as Jasper-
Natron.
SPRINGFIELD UGB AMENDMENTS 2011-2016
Prior to 2011, Springfield and Eugene shared one Metro Area UGB. Oregon Revised Statute
197.304 (2007) required both cities to independently conduct housing needs analyses and to
establish separate UGBs to meet those needs. In 2007, Springfield began an evaluation of the
UGB for two categories of land need: housing and employment.
The Springfield UGB was first acknowledged in 2011, designating a land supply to meet the
City’s residential land and housing needs for the 2010-2030 planning period.31 The Springfield
UGB included all of the lands and waters within the previously acknowledged Eugene-
Springfield Metropolitan Area General Plan Boundary located east of the centerline of Interstate
30 Springfield Ord. 6361, Lane County PA 1304, Exhibit C-2 UGB Technical Supplement
31 Springfield Ordinance No. 6268, Lane County Ordinance No. PA 1274 URBANIZATION ELEMENT 47 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 39 of 53
Attachment 1 Page 43 of 169
Highway 5. (i.e. the Springfield UGB is coterminous with the Metro Plan Boundary on the east
side of I-5). 32
The UGB provides sufficient land designated to meet all residential land needs through the year
2030 without expanding the UGB — through implementation of plan and zoning amendments
and Springfield Development Code land use efficiency measures.
The UGB was subsequently amended in 2016 to designate a 20-year land supply for employment
and natural resource protection, and to designate public land for parks, open space and
public/semi-public facilities.33 With the exception of seven needed employment sites larger than
five acres, the City’s employment land inventory was found to be sufficient to meet all
employment land needs for the planning period without expanding the UGB. The employment
land UGB expansion added approximately 257 suitable and developable acres to provide sites for
target industries and uses that require sites larger than 5 acres.34 The public land UGB expansion
added approximately 455 acres of publicly-owned land to the UGB. The Springfield UGB as
amended and acknowledged in 2019 contains approximately 15,411 acres of land.
RELATIONSHIP TO THE METRO PLAN, FUNCTIONAL PLANS &
REFINEMENT PLANS
The Springfield Comprehensive Plan Urbanization Element was adopted by the City of Springfield
and Lane County as a city-specific comprehensive plan policy element to independently address a
planning responsibility that was previously addressed on a regional basis in the Metro Plan.35 The
Urbanization Element goals, policies and implementation actions replace the more general Metro
Area-wide goals, findings and policies contained in Metro Plan sections entitled “Growth
Management Goals, Findings and Policies” (Metro Plan II-C) and “Urban and Urbanizable Land”
(Metro Plan II-E) for lands within the Springfield UGB.
The Metro Plan establishes a broad regional framework for Eugene, Springfield, and Lane
County to coordinate comprehensive planning within the Eugene-Springfield Metropolitan
planning area. Metro Plan Chapter I explains the relationship between city-specific
comprehensive plans, the broad policy framework of the Metro Plan and the regionally-
coordinated functional plans. The Springfield Comprehensive Plan elements — including this
Urbanization Element — explicitly supplant the relevant portion of the Metro Plan. Should
inconsistencies occur between the Springfield Comprehensive Plan and a refinement or
functional plan, or references in the Springfield Development Code that refer to Metro Plan
policies, the Springfield Comprehensive Plan is the prevailing policy document.36
32 Springfield Ord. 6288, Eugene Ord. 20511, and Lane County Ord. PA 1281
33 Springfield Ordinance 6361, Lane County Ordinance PA 1304, Exhibit A-2
34 Springfield Commercial and Industrial Land Inventory and Economic Opportunities Analysis , 2015
35 Metro Plan pp. iii-iv and Chapter II describes the incremental Metro planning area shift towards separate
Springfield and Eugene UGBs and city-specific comprehensive plans.
36 During the period of transition from Metro Plan to local comprehensive plans, Springfield’s “comprehensive plan” consists
of the acknowledged Metro Plan and the acknowledged Elements of the Springfield 2030 Comprehensive Plan.
48 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 40 of 53
Attachment 1 Page 44 of 169
RESPONSIBILITIES FOR LAND USE PLANNING & DEVELOPMENT
WITHIN THE SPRINGFIELD UGB
Metro Plan Chapter II and Chapter IV describe jurisdictional responsibilities within the Eugene-
Springfield Metropolitan planning area. The division of responsibility for metropolitan planning
between the two cities is the Interstate 5 Highway. Springfield, Eugene and Lane County are
required to co-adopt a UGB or Metro Plan boundary change that crosses the Interstate 5
Highway. For purposes of other amendments and implementation of the Metro Plan, Lane
County has joint responsibility with Springfield between the city limits and the Metro Plan
Boundary east of the Interstate 5 Highway.
Metro Plan Chapter IV describes the procedures for review, amendments and refinements of
the Metro Plan, including amendments of the Metro Plan adopting singular or multiple
Elements of the Springfield Comprehensive Plan that explicitly supplant relevant portions of the
Metro Plan. Metro Plan amendments that are being considered in conjunction with a city- specific
plan adoption or amendment follow the procedures described in Metro Plan Chapter
IV.
Land use planning and development within the Springfield city limits is the sole responsibility of
the City of Springfield. Land development within Springfield’s urbanizable areas is planned and
cooperatively administered by the City of Springfield in coordination with Lane County in
accordance with the policies in this Plan and as described in the ORS 190 Intergovernmental
Agreement (1987) between the City of Springfield and Lane County.37 The Agreement delegated
building, zoning, and planning administration and decision making authority for services for the
land between Springfield’s UGB and the city limits from the County to the City of Springfield and
describes criteria and procedures for land regulation and management.
Planning for regionally significant public investments within Springfield’s UGB is coordinated on a
metropolitan-wide basis by utilizing the regional transportation planning and public facilities
planning processes38 as described in the Metro area functional plans—including the Eugene-
Springfield Public Facilities and Services Plan and the Regional Transportation System Plan.
Some of Springfield’s neighborhood refinement plans (such as the Glenwood Refinement Plan)
may include a refined level of policy guidance for urbanization in specific locations within
Springfield’s UGB.
37 Agreement Regarding the Transfer of Building and Land Use Responsibilities within the Urbanizable Portion of the
Springfield Urban Growth Boundary, January 1, 1987.
38 For other related policy discussion, see the Public Facilities and Services Element in Metro Plan Chapter III-G. The
Springfield Comprehensive Plan does not address service districts. URBANIZATION ELEMENT 49 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 41 of 53
Attachment 1 Page 45 of 169
PLAN DESIGNATION & ZONING LAND USE DISTRICTS OF
UNINCORPORATED “URBANIZABLE” LANDS IN THE UGB
The unincorporated land within the Springfield UGB is urbanizable and is considered part of
Springfield’s land base for housing and employment as identified in the most recent buildable
land inventories. It is assumed that buildable 39 lands will eventually be included in the City’s
incorporated area and developed to accommodate designated urban uses and densities.
Urbanizable lands exist in various areas of the Springfield UGB and are designated for a variety of
land uses as shown in Table 1 (next page). The land use designation determines the applicable
zoningland use district, both before after annexation. In addition to the plan designation, land
use district zoning and the applicable policies of this Urbanization Element, Springfield is
required by Oregon law to implement land use controls regulating interim development on
unincorporated land to prevent land divisions and uses that would preclude future development
of planned urban uses and densities. As shown in Table 1, Springfield Land Use Districts Zoning
implements this provision of the law through two different land use district zoning mechanisms in
the Springfield Development Code: 1) the Agriculture - Urban Holding Area Zoning Land Use
District (AG) was established and applied to land after 2015 to implement the Urban Holding Area
-Employment and Natural Resource plan designations; and 2) the Urbanizable Fringe Overlay
Zoning District (UF-10) was established and applied to lands prior to 2015 and is a zoning overlay
district placed over multiple plan designations. Both zoning land use district mechanisms were
established to implement the goal of compact growth through provisions that maintain the supply
of land for urban development in areas between the city limits and the UGB. Unincorporated
public land designated Public Land and Open Space Government and Education or Public/Semi
Public is zoned Public Land and Open Space on the Springfield Zoning Map.
39 Some lands have absolute development constraints that for inventory purposes are not assumed to be buildable. See
Findings section this Element for more information.
50 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 42 of 53
Attachment 1 Page 46 of 169
Table 1: Urbanizable Land
Plan Designations & Applicable Zoning Land Use Districts
Metro Springfield Comprehensive
Plan Designation
Springfield Zoning Land Use District(s)
Applicable Before Annexation
Springfield Land Use Zoning District(s)
Applicable After Annexation
Urban Holding Area —
Employment
Agriculture — Urban Holding Area (AG)
Zoning Land Use District
Employment zoning land use districts such as:
Employment
Mixed Use40
Campus Industrial
Employment Special Heavy Industrial
Light Medium Industrial
Urbanizable Fringe Overlay District (UF-
10)
Special Heavy Industrial41
Light Medium Industrial
Commercial Urbanizable Fringe Overlay District (UF-
10) Community Commercial
Low Density Residential
Medium Density Residential
High Density Residential
Urbanizable Fringe Overlay District (UF-
10)
Low Density ResidentialR-1
Small Lot Residential42
Medium Density ResidentialR-2
High Density ResidentialR-3
Glenwood Refinement Plan:
Residential Mixed Use
Glenwood Commercial Mixed Use
Glenwood Office Mixed Use
Glenwood Employment Mixed Use
Urbanizable Fringe Overlay District (UF-
10)
and
Glenwood Riverfront Mixed-use Plan
District
Glenwood Residential Mixed Use
Glenwood Commercial Mixed Use
Glenwood Office Mixed Use Glenwood
Employment Mixed Use
Glenwood Refinement Plan:
Low Density Residential
Urbanizable Fringe Overlay District (UF-
10)
Low Density ResidentialR-1
Special Density Residential43
Glenwood Refinement Plan:
Light Medium Industrial
Urbanizable Fringe Overlay District (UF-
10) Light Medium Industrial44
Glenwood Refinement Plan:
Parks and Open Space Public Land and Open Space (PLO) Public Land and Open Space (PLO)
Public Land and Open Space Public –
Semi Public Public Land and Open Space (PLO) Public Land and Open Space (PLO)
Natural Resource Agriculture — Urban Holding Area (AG)
Zoning Land Use District
Natural resource protection zoning land use
districts such as:
Natural Resource
Public Land and Open Space
Natural Resource Overlay Government and Education Public Land and Open Space (PLO)45 Public Land and Open Space (PLO)
40 Zoning to be determined through subsequent Springfield 2030 Comprehensive Plan or refinement plan updates.
41 Ibid.
42 Ibid.
43 Ibid. Springfield Comprehensive Plan Residential Land Use & Housing Element Policy H.7, Implementation Action 7.4
requires analysis to determine applicability of small lot zoning in Glenwood south of Franklin Blvd.
44 Zoning to be determined through subsequent Springfield 2030 Comprehensive Plan or refinement plan updates.
45 Ibid. URBANIZATION ELEMENT 51 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 43 of 53
Attachment 1 Page 47 of 169
Urban Holding Area - Employment (UHA-E) Metro Plan Designation
Lands brought into Springfield’s UGB to address 2010-2030 land needs for suitable large
employment sites are designated Urban Holding Area – Employment (UHA-E) as an interim plan
designation to maintain the land’s potential for planned urban development until appropriate
urban facilities and services are planned or available and annexation to Springfield can occur.
The Urban Holding Area – Employment (UHA-E) plan designation reserves suitable large
employment sites to meet Springfield’s long term employment land needs for the 2010-2030
planning period. Lands within the UHA-E designation are planned and zoned for the primary
purpose of reserving an adequate inventory of large employment sites that are well located and
viable for industry and not easily replicable elsewhere. The Springfield 2030 Comprehensive Plan
designates suitable large sites for employment uses that generate significant capital investment
and job creation within — but not limited to — targeted industry sectors, business clusters and
traded-sector 46 industries identified in the most recent economic opportunities analysis and
Economic Element policies of this Plan.
The City expanded the UGB in 2016 to support diversification of the economy by increasing
opportunities for siting target industry employers that require large sites. The expansion was
based on the lack of vacant or potentially redevelopable parcels larger than five acres in the
City’s 2008 inventory of employment land and the need for large parcels identified in the
Economic Opportunities Analysis.47 In 2008-2016, the City conducted an Urban Growth
Boundary Alternatives Analysis and discovered that few viable options exist for bringing in
suitable large parcels of employment land close enough to the City’s urban area to maintain a
compact urban form. This is due to Springfield’s geography and topography. The City is
situated between the McKenzie and Willamette Rivers and their floodplains, and surrounded by
steeply sloped hills on three sides, thus suitable, serviceable, close-in land is in scarce supply. The
Urban Holding Area - Employment (UHA-E) designation reserves employment sites within
urbanizable areas of 50 or more suitable acres to support creation of economic districts that will
accommodate the site needs of target employment sectors. The size of employment districts and
parcels of urbanizable land designated UHA-E provides adequate dimension so as to maximize the
utility of the land resource and enable the logical and efficient extension of services to all parcels
within the UHA.
The UHA-E plan designation and Agriculture – Urban Holding Area Zoning Land Use District work
together to serve important purposes in the 2030 Comprehensive Plan. Land suitable for large
employers is identified, reserved and protected from incompatible interim development.
Bringing these lands into the UGB as designated holding areas subject to the policies of this
Urbanization Element and the regulations of the Springfield Development Code establishes
the first step for the City — in cooperation with Lane County — to comprehensively plan the
urbanizable land supply to accommodate long range employment site needs and to protect
natural resources. The UHA-E designation remains in effect until the appropriate
46 ORS 285A.010(9)
47 Springfield Commercial and Industrial Buildable Land Inventory and Economic Opportunities Analysis, Table 5-4
52 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 44 of 53
Attachment 1 Page 48 of 169
employment designation is adopted through a City-initiated planning process or an owner-
initiated plan amendment process. Lands designated UHA-E and zoned AG are located in two
areas of the UGB:48
Table 2: Urbanizable Land Designated Urban Holding Area – Employment
(UHA-E)
Name of Area
Acres
Designated
UHA-E
Acres
Zoned AG
# of Suitable
employment
acres (UHA-E)
Location
North Gateway
UHA -E
139.4 gross
acres
(includes
right of way)
193 132.1 suitable
acres
North of
Gateway/International
Way, east of I-5
Mill Race District
UHA-E
133 gross
acres
(includes
right of way)
135 125 suitable acres South of Main Street, via
South 28th and M Streets
Springfield Development Code Agriculture – Urban Holding Area (AG)
Zoning Land Use District Implements the UHA-E Plan Designation
Lands within the UHA-E designation are zoned Agriculture – Urban Holding Area 49 to retain large
parcel sizes and current predominant farm uses until land is planned and zoned to allow urban
development.
The Springfield Development Code Agriculture – Urban Holding Area Zoning Land Use District (AG)
is established to implement the goal of compact growth through provisions that control the
potential for premature or incompatible development on large sites added to the UGB to diversify
the economy. The AG District includes provisions to limit the division of land and prohibit urban
development. A 50-acre minimum lot size is applied to lots/parcels greater than 50 acres and a
20-acre minimum lot size is applied to lots/parcels less than 50 acres to protect undeveloped
sites from inefficient piecemeal development until land is planned and zoned to allow annexation
and site development with urban employment uses and densities.
All interim development in the AG District must be designed to City standards.
48 Springfield Ordinance 6361, Lane County Ordinance PA1304, Exhibit A-2
49 Springfield Ordinance 6361, Lane County Ordinance PA1304, Exhibit A-3 URBANIZATION ELEMENT 53 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 45 of 53
Attachment 1 Page 49 of 169
Natural Resource (NR) Metro Plan Designation - North Gateway Site
Land in North Gateway brought into Springfield’s UGB to address 2010-2030 land needs for
suitable large employment sites includes portions of properties within the floodway of the
McKenzie River. Floodway is identified as an “absolute constraint” in the City’s land inventories.
Land within the floodway is not considered suitable to meet employment land needs and is not
counted as developable in the inventory. The City and County included the floodway portion of
the site in the UGB to allow consistent land use administration of the floodplain pursuant to the
purposes and standards of the Springfield Development Code Floodplain Overlay District
standards. The portion of the site North Gateway site within the FEMA floodway is designated
Natural Resource, a designation applied to privately and publicly owned lands where
development and conflicting uses are prohibited to protect natural resource values. In addition
to the purposes of the Floodplain Overlay District, land designated Natural Resource is protected
and managed for fish and wildlife habitat, soil conservation, watershed conservation, scenic
resources, passive recreational opportunities, vegetative cover, and open space.
Table 3: Urbanizable Land Designated Natural Resource (NR)
Name of Area
Acres
Designated
Natural
Resource
Acres
Zoned AG Location
North Gateway
Natural Resource
(NR)
53 53 North of Gateway/International
Way, east of I-5
Springfield Development Code Agriculture – Urban Holding Area (AG)
Zoning Land Use District Implements the Natural Resource Plan
Designation
Lands within the Natural Resource designation are zoned Agriculture – Urban Holding Area to
retain predominant farm uses and to direct development towards the unconstrained portions
of the property that are designated UHA-E for employment uses.
E l e m e n t54 | U r b a n i z a t i o n
Exhibit A, Page 46 of 53
Attachment 1 Page 50 of 169
Springfield Development Code Agriculture – Urbanizable Fringe Zoning
Overlay District (UF-10) Implements Varied Plan Designations:
Urbanizable Fringe Overlay Zoning District (UF-10)
The UF-10 Overlay District is applied over multiple plan designations as shown in Table 1, and
includes unincorporated land in the following eight geographic areas of the UGB:
Table 4: Urbanizable Land in UF-10 Zoning District
West Centennial Thurston South Hills
Gateway-Hayden Bridge Jasper-Natron
Clearwater South 2nd Street
Thurston Glenwood
The UF-10 Overlay District includes provisions to limit the division of land and prohibit urban
development. All interim development in the UF-10 Overlay District must be designed to City
standards. The UF-10 Overlay is removed automatically when annexation to the City is
approved through the City’s land use review process, as described in the Springfield
Development Code Annexation chapter.
SPRINGFIELD ANNEXATION PROCESS
The annexation process—as articulated in the Springfield Development Code—guides the
efficient transition of land from rural to urban uses to accommodate population and urban
employment growth within Springfield’s UGB by:
Providing land to accommodate future urban development;
Providing land to accommodate necessary public facilities or services; and
Ensuring that land designated to accommodate population and urban employment
growth is developed to achieve its planned urban uses, densities and economic
potential in a manner consistent with the urban development standards of the
Springfield Development Code.
Oregon law grants Springfield City Council the authority to review and approve or deny
petitions to annex territory located within Springfield’s UGB to the City. Statutory
requirements for annexation are implemented through the Springfield Development
Code. The Code prescribes the City’s land use process and criteria for approving
annexation petitions.
The intent is that annexation will occur incrementally as property owners desire to develop or
redevelop land. Annexation is required when unincorporated property is proposed to be URBANIZATION ELEMENT 55 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 47 of 53
Attachment 1 Page 51 of 169
developed or redeveloped with planned urban uses and densities or where necessary to abate
public health hazards50 such as failed septic systems.
Key Urban Services Required for Annexation to the City of Springfield
The policies and implementation strategies in the Urbanization Element ensure that urban
facilities and services directly related to land use planning and the efficient transition of land
from urbanizable to urban pursuant to Goal 14 Urbanization are provided to urbanizable lands in
a timely, orderly, and efficient manner to serve planned land uses within Springfield’s urban
growth boundary and within the metropolitan area. The Springfield Comprehensive Plan
Urbanization Element retains the long-standing Metro area urbanization policy criteria for
approving annexations:
Springfield Comprehensive Plan Urbanization Element Policy 30: Unincorporated
land within the Springfield UGB may be developed with permitted uses at
maximum density only upon annexation to the City when it is found that key
urban facilities and services can be provided to the area to be annexed in an
orderly and efficient manner. Provision of these services to the area proposed for
annexation is consistent with the timing and location for such extension, where
applicable, in the City’s infrastructure plans — such as the Public Facilities and
Services Plan; the Springfield Transportation System Plan; the City’s Capital
Improvement Program; and the urbanization goals, policies and implementation
strategies of this Element — or a logical time within which to deliver these
services has been determined, based upon demonstrated need and budgetary
priorities.
Oregon law includes requirements that must be met prior to annexation approval to ensure
orderly growth, such as prohibiting non-contiguous annexations and providing information about
properties’ contribution to offsite public systems. Oregon Administrative Rules establish policies
to protect public waters from human health hazards, including standards and permitting
requirements for onsite wastewater treatment systems construction, alteration and repair. These
rules require connection to a sewerage system that can serve the proposed sewage flow when
such a system is physically and legally available within the distances specified in the OARs.
The City of Springfield requires annexation before wastewater services are extended as planned
in the Metropolitan Public Facilities and Services Plan.
For the purposes of land use planning and annexation, the Springfield Comprehensive Plan
defines key urban facilities and services as those services and facilities that are necessary to
serve planned urban uses and densities in accordance with applicable Statewide Planning
Goals, statutes and administrative rules: wastewater service; stormwater service;
transportation; solid waste management; water service; fire and emergency medical services;
police protection; citywide park and recreation programs; electric service; land use controls;
50 Oregon Revised Statutes Chapter 222 Health Hazard Abatement
56 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 48 of 53
Attachment 1 Page 52 of 169
communication facilities; and public schools on a district-wide basis. All references to Metro
Plan policies regarding “key urban services” in Springfield refinement plans and the Springfield
Development Code shall be amended to reference Springfield Comprehensive Plan Urbanization
Element Policy 30. This plan does not address facilities and services provided by Lane County51,
the State of Oregon, or the Federal government, and does not preclude provision of those
services within Springfield.
The availability of key urban services is determined by Springfield and/or applicable public and
private service providers at the time of the annexation request, based on a determination of
existing and planned capacity, existing and proposed uses, and costs. The land use application
process for annexation is described in the Springfield Development Code. If key urban services
are not available to serve the site at the time the annexation request is made, the Code requires
an Annexation Agreement to ensure that services will be provided in a timely manner. The
Annexation Agreement states the terms, conditions, and obligations of the property owner and
the service providers regarding the fiscal and service impacts to Springfield associated with the
annexation, provision of infrastructure, and future development of the property.
URBAN HOLDING AREA – EMPLOYMENT DESIGNATION:
REQUIRED PLAN AMENDMENT PROCEDURES TO DESIGNATE
URBANIZABLE LAND FOR URBAN DEVELOPMENT BEFORE
ANNEXATION & DEVELOPMENT APPROVAL
Lands designated Urban Holding Area – Employment (UHA-E) require comprehensive plan
amendments and may require facility plan amendments prior to their designation and zoning land
use district for urban employment use. The policies and implementation strategies in this
Urbanization Element describe Statewide Planning Goal requirements that must be addressed
prior to approval of plan and zoning changes that allow the transition from urbanizable to urban
on lands designated UHA-E. Specific policies and implementation strategies are listed under each
Urbanization Planning Goal to identify the steps needed before land may be designated, zoned
and annexed to permit development to occur. These steps ensure that ample opportunities for
citizen involvement are provided through community refinement planning processes conducted at
the district scale to establish employment land use designations, zoningland use districts, design
and development standards, transportation systems and public facilities to meet and balance
community and industry needs in the North Gateway and Mill Race Urban Holding Area –
Employment Districts.
Planning Requirements in Urban Holding Areas
District, refinement plan or master plan approval is required prior to or concurrent with
annexation of land designated Urban Holding Area- Employment as shown in Table 3. Urban
51 Lane County provides the following services on a county-wide basis: sheriff and corrections, criminal prosecution, parole
and probation; elections; regional transportation; mental health and public health services; workforce assistance; animal
services; and regional parks and facilities. URBANIZATION ELEMENT 57 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 49 of 53
Attachment 1 Page 53 of 169
Holding Areas are zoned Agriculture - Urban Holding Area (AG) prior to plan amendment
approval and prior to annexation.
Table 5: Pre-Development Approval Process Steps – Urban Holding Areas
City-initiated Planning Process Owner-initiated Planning Process
1. City prepares Plan Amendment to address all
applicable Statewide Planning Goals (e.g.
amended or new refinement plan or district plan),
Metro Plan and 2030 Springfield Comprehensive
Plan policies and Springfield Development Code
standards.
1. Applicant submits request to City to initiate
amendments to Transportation System Plan
and Public Facilities and Services Plan, and
other city actions that may be required prior to
plan amendment approval.
2. City and Lane County approve Plan Amendment
to amend Metro Plan and Springfield
Comprehensive Plan Map. UHA-E designation is
replaced with employment plan designations (e.g.
Employment, Employment Mixed Use, Campus
Industrial, Industrial). AG land use district zoning
remains in effect until Master Plan and new land
use districts zoning are approved.
2. Applicant prepares and submits Plan
Amendment application to address all
applicable Statewide Planning Goals, Metro
Plan and 2030 Springfield Comprehensive Plan
policies, and Springfield Development Code
standards. Applicant proposes employment
plan designations (e.g. Employment,
Employment Mixed Use, Campus Industrial,
Industrial).
3. City prepares and approves Zoning Map
Amendment to apply new zoning land use
districts (e.g. Industrial, Campus Industrial,
Employment Mixed Use, Employment). Land is
planned and zoned and eligible for annexation.
3. City and Lane County approve Plan
Amendment to amend Metro Plan and
Springfield Comprehensive Plan. UHA-E
designation is replaced with employment plan
designations (e.g. Employment, Employment
Mixed Use, Campus Industrial, Industrial). AG
land use district zoning remains in effect until
Master Plan and new land use districts zoning
are approved.
4. Applicant prepares and submits Master Plan
and annexation applications with
demonstration of key urban service provision.
4. Applicant prepares and submits Master
Plan with proposed land use district zoning
and demonstration of key urban services
provision. Applicant submits annexation
application.
5. City approves Master Plan and annexation. 5. City approves Master Plan and Zoning Map
Amendment and annexation.
6. Applicant submits Site Plan, Subdivision etc.
Type II development applications.
6. Applicant submits Site Plan, Subdivision
etc. Type II development applications.
58 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 50 of 53
Attachment 1 Page 54 of 169
URBANIZATION ELEMENT GOALS, POLICIES & IMPLEMENTATION
STRATEGIES
The Springfield 2030 Urbanization Element Planning Goals express the desired community
development outcomes and benefits the City aspires to achieve by planning and managing land in
new growth areas before the land is annexed to become part of the City.
The Springfield 2030 Urbanization Element Policies and Implementation Strategies are the City’s
agreements and commitments to manage urban growth in ways that provide and sustain a
healthy, prosperous and equitable environment aligned with Springfield’s interests, values and
assets. The adopted policy statements and implementation strategies in this plan provide a
consistent course of action, moving the community toward attainment of its goals. Some policies
and strategies call for immediate action; others require additional studies or community planning
processes to develop more detailed or specific area plans or policy updates.
UG‐1 Promote compact, orderly and efficient urban development by guiding future growth to
vacant sites and redevelopment areas within the established areas of the city and to
urbanize lands where future annexation and development may occur.
1. Urbanizable lands within the 2030 UGB shall be converted to urban uses as shown in the
Springfield Comprehensive Plan Map Metro Plan Diagram and as more particularly described
in neighborhood refinement plans, other applicable area-specific plans, and the policies of
this Plan.
2. Continue to support and facilitate redevelopment and efficient urbanization through City-
initiated area-specific refinement planning and zoning amendments consistent with the
policies of this Plan. Plans shall designate an adequate and competitive supply of land to
facilitate short-term and long-term redevelopment activity. Efficiency measures achieved
through plan amendments may be reflected in land supply calculations to the extent that
they are likely to increase capacity of land suitable and available to meet identified needs
during the relevant planning period.
▪ Continue to provide public policy and financial support when possible for
redevelopment in Springfield.
▪ Continue to prioritize and incentivize redevelopment in the Glenwood and Downtown
urban renewal districts and support redevelopment throughout the City as described
in the Economic and Residential Elements of this Plan.
▪ Continue to provide development tools and incentives (such as Urban Renewal
support) within targeted priority redevelopment areas as resources become available
to facilitate expedient and economically feasible redevelopment. URBANIZATION ELEMENT 59 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 51 of 53
Attachment 1 Page 55 of 169
▪ Continue to conduct focused planning in key redevelopment areas, as directed by the
City Council, as resources are available. Such efforts will review, update and
supersede existing refinement plan designations and policies.
▪ Identify and include public agencies and private stakeholder partners in district-
specific planning efforts to facilitate redevelopment through partnerships and other
cooperative relationships.
3. Any development taking place within the City’s urbanizable area shall be designed to the
development standards of the Springfield Development Code.
Policies: Development within the Urban Holding Area- Employment
Designation
4. Urbanizable lands added to Springfield’s acknowledged UGB by Ordinance No. 6361
(adopted December 5 and 6, 2016, acknowledged 2019) to meet employment needs
are designated “Urban Holding Area-Employment” (UHA-E) in the Metro Plan consistent
with the employment site needs criteria for their inclusion in the UGB.52 The UHA-E
designation reserves employment sites within urbanizable areas of 50 or more suitable
acres to support creation of economic districts that will accommodate the site needs of
target employment sectors. The size of employment districts and parcels of urbanizable
land designated UHA-E shall be of adequate dimension so as to maximize the utility of
the land resource and enable the logical and efficient extension of infrastructure to
serve the North Gateway or Mill Race urbanizable area.
5. Lands designated UHA-E are planned and zoned for the primary purpose of reserving an
adequate inventory of large employment sites that is well located and viable for industry
and not easily replicable elsewhere for employment uses that generate:
▪ A significant capital investment;
▪ Job creation within—but not limited to—targeted industry sectors, business
clusters and traded-sector industries identified in the most recent economic
opportunities analysis and Economic Element policies of this Plan.
6. Lands designated “Urban Holding Area-Employment” are zoned “Agriculture – Urban
Holding Area” (AG) on the Springfield Zoning Map and are subject to the development
standards of the Springfield Development Code AG Zoning Land Use District.
7. For lots/parcels greater than 50 acres in the North Gateway UHA-E District, the minimum
lot/parcel size for land division is 50 acres. Land divisions that create lots/parcels for the
52 ORS 285A.010(9)
60 | U r b a n i z a t i o n E l e m e n t
Exhibit A, Page 52 of 53
Attachment 1 Page 56 of 169
purpose of establishing a Natural Resource or Public Land/Semi-Public Parks and Open
Space designation within the floodway, wetland or riparian resource portions of the site
may create lots/parcels less than 50 acres within the Natural Resource or Public
Land/Semi-Public Parks and Open Space designation portion of the parent lot/parcel.
Lots/parcels created and designated for employment purposes shall retain the 50-acre
minimum until planned and zoned to allow annexation and site development with urban
employment uses and densities consistent with the policies of this Plan.
8. For lots/parcels less than 50 acres in the North Gateway and Mill Race UHA-E Districts, the
minimum lot/parcel size for land division is 20 acres. Land divisions that create
lots/parcels for the purpose of establishing a Natural Resource or Public Land/Semi-Public
Parks and Open Space designation within the floodway, wetland or riparian resource
portions of the site may create lots/parcels less than 20 acres within the Natural Resource
or Public Land/Semi-Public Parks and Open Space designation portion of the lot/parcel.
Lots/parcels created and designated for employment purposes shall retain the 20-acre
minimum until planned and zoned to allow annexation and site development with urban
employment uses and densities consistent with the policies of this Plan.
9. As directed by the City Council, the City will conduct comprehensive planning processes
and adopt refinement-level plans and implementation measures to guide and regulate
urban development in the North Gateway and Mill Race UHA-E districts. The Transportation
Planning Rule requirements under OAR 660-012-0060 will be addressed prior to any re-
designation or zoning map amendment that allows urbanization.
10. Refinement Plans, District Plans, Master Plans and zoning land use districts for land within
the UHA-E designation shall support cohesive design and development of innovative
Employment districts that provide attractive sites for economic development in convenient
proximity to natural and recreational amenities and infrastructure systems designed to
integrate and protect water quality, Springfield’s Drinking Water Source Areas, riparian,
wetland and groundwater resources, aquifer recharge, and floodplain functions with
compatible employment uses.
11. Plan and zone land within the UHA-E designation to provide suitable employment sites 20
acres and larger to accommodate clean manufacturing53 uses and office/tech/flex
employers in Springfield’s target industry sectors. Limited neighborhood-scale retail uses
that primarily serve employees within an industrial or office building or complex may be
permitted as a secondary element within employment mixed-use zones. Urban Holding
Area-Employment (UHA- E) sites shall not be re-designated or zoned to permit
development of regional retail commercial uses.
53 For the purposes of this policy, “clean” is defined as land uses, construction practices, and business operations that
minimize waste and environmental impacts, and that contribute to a safe, healthy, and clean community, maintain the
aquifer recharge capacity of the site by reducing impervious surfaces, and protect Springfield’s drinking water source
areas from contamination. URBANIZATION ELEMENT 61 | S p r i n g f i e l d C o m p r e h e n s i v e P l a n
Exhibit A, Page 53 of 53
Attachment 1 Page 57 of 169
Exhibit B
Eugene-Springfield Metropolitan Area General Plan (Metro Plan)
Amendments
The amendments to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan) are to
replace the text in Metro Plan Chapter II-G (Metro Plan Diagram) and the plan designations
shown on the Metro Plan Diagram for lands within the Springfield Urban Growth Boundary by
adopting a Springfield Comprehensive Plan Map and Land Use Element of the Springfield
Comprehensive Plan, and amending additional Metro Plan text for consistency with the Land
Use Element of the Springfield Comprehensive Plan.
The amendments are shown in track changes on the following pages and include:
•Preface (page v)
•Chapter I. Introduction (pages I-3 to I-6)
o Use of the Metro Plan
o Relationship to Other Plans, Policies, and Reports
•Chapter II. Fundamental Principles and Growth Management Policy Framework
o G. Metro Plan Diagram – pages II-G-1 and II-G-16
•Chapter III. Specific Elements
o D. Willamette River Greenway, River Corridors, and Waterways Element –
footnote on III-D-1 and 2
•Chapter V – Glossary (page V-3)
Exhibit B, Page 1 of 11
Attachment 1 Page 58 of 169
v
Springfield’s Comprehensive Plan
Springfield has begun a series of Metro Plan amendments to create a city-specific comprehensive
plan. In 2011, the City of Springfield and Lane County adopted the Springfield 2030 Residential
Land Use and Housing Element and established a separate UGB for Springfield pursuant to ORS
197.304 (Springfield Ordinance No. 6268 and Lane County Ordinance No. PA 1274). In 2014,
the City of Springfield 2035 Transportation System Plan was adopted to serve as Springfield’s
local Transportation System Plan (Springfield Ordinance No. 6314 and Lane County Ordinance
No. PA 1303). In 2016, the Metro Plan was amended to reflect adoption of the Economic and
Urbanization Elements and expansion of the Springfield UGB and Metro Plan Boundary to
designate land for employment, public facilities, parks and open space, and natural resources
(Springfield Ord. 6361 and Lane County Ord. PA 1304). The Metro Plan was amended to reflect
adoption of the Springfield Comprehensive Plan Land Use Element and Springfield
Comprehensive Plan Map, which replaces the text in the Metro Plan Diagram Chapter II-G and
removes the plan designations shown on the Metro Plan Diagram for areas within Springfield’s
urban growth boundary. These amendments were adopted by Springfield City Council in 2023
and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and
Lane County Ordinance No. PA 1390 and Ordinance No. 23-07).
Exhibit B, Page 2 of 11
Attachment 1 Page 59 of 169
I-3
4. Provides the public with general guidelines for individual planning decisions. Reference
to supplemental planning documents of a more localized scope, including neighborhood
refinement plans, is advisable when applying the Metro Plan to specific parcels of land or
individual tax lots.
5. Assists citizens in measuring the progress of the community and its officials in achieving
the Metro Plan’s goals and objectives.
6. Provides continuity in the planning process over an extended period of time.
7. Establishes a means for consistent and coordinated planning decisions by all public
agencies and across jurisdictional lines.
8. Serves as a general planning framework to be augmented, as needed, by more detailed
planning programs to meet the specific needs of the various local governments.
9. Provides a basis for public decisions for specific issues when it is clear that the Metro
Plan serves as the sole planning document on the issue and that it contains a sufficient
level of information and policy direction.
10. Recognizes the social and economic effects of physical planning policies and decisions.
11. Identifies the major transportation, wastewater, stormwater, and water projects needed to
serve future UGB populations.
Use of the Metro Plan
The Metro Plan is a policy document intended to provide the three jurisdictions and other
agencies and districts with a coordinated guide for change over a long period of time.
Throughout the Metro Plan, there may be statements indicating that certain provisions are
inapplicable to a jurisdiction because that jurisdiction has replaced those Metro Plan provisions
with local plan provisions. The major components of this policy document are: the written text,
which includes goals, objectives, findings, and policies; the Metro Plan Diagram; and other
supporting materials. These terms are defined below:
• A goal is a broad statement of philosophy of the jurisdictions to which the goal
applies. A goal describes the hopes of the people of the community for the future of
the community. A goal may never be completely attainable, but is used as a point to
strive for.
• An objective is an attainable target that the jurisdictions to which the objective
applies attempt to reach in striving to meet a goal. An objective may also be
considered as an intermediate point that will help fulfill the overall goal.
Exhibit B, Page 3 of 11
Attachment 1 Page 60 of 169
I-4
• A finding is a factual statement resulting from investigation, analysis, or observation
regarding the jurisdictions to which the finding applies.
• An assumption is a position, projection, or conclusion considered to be reasonable.
Assumptions differ from findings in that they are not known facts.
• A policy is a statement adopted as part of the Metro Plan to provide a consistent
course of action for the jurisdictions to which the policy applies, moving the
community toward attainment of its goals.
• The Metro Plan Diagram is a graphic depiction of: (a) the broad allocation of
projected land use needs; and (b) goals, objectives, and policies embodied in the text
of the Metro Plan. The Metro Plan Diagram depicts land use designations, the cities’
urban growth boundaries, the Metro Plan Plan Boundary (Plan Boundary), and major
transportation corridors. 4
The revised goals, objectives, and policies contained in this Metro Plan are not presented in any
particular order of importance. The respective jurisdictions recognize that there are apparent
conflicts and inconsistencies between and among some goals and policies. When making
decisions based on the Metro Plan, not all of the goals and policies can be met to the same
degree in every instance. Use of the Metro Plan requires a balancing of its various components
on a case-by-case basis, as well as a selection of those goals, objectives, and policies most
pertinent to the issue at hand.
The policies in the Metro Plan vary in their scope and implications. Some call for immediate
action; others call for lengthy study aimed at developing more specific policies later on; and still
others suggest or take the form of policy statements. The common theme of all the policies is
acceptance of them as suitable approaches toward problem-solving and goal realization. Other
valid approaches may exist and may at any time be included in the Metro Plan through plan
amendment procedures. Adoption of the Metro Plan does not necessarily commit the
jurisdictions to immediately carry out each policy to the letter, but does put them on record as
having recognized the validity of the policies and the decisions or actions they imply. The
jurisdictions can then begin to carry out the policies to the best of their ability, given sufficient
time and resources.
In addition, it is important to recognize that the written text of the Metro Plan takes precedence
over the Metro Plan Diagram where apparent conflicts or inconsistencies exist. The Metro Plan
Diagram is a generalized map which is intended to graphically reflect the broad goals, objectives,
and policies. As such, it cannot be used independently from or take precedence over the written
portion of the Metro Plan.
4 The Springfield Comprehensive Plan Map replaces the plan designations shown on the Metro Plan Diagram for
areas within Springfield’s urban growth boundary. These amendments were adopted by Springfield City Council in
2023 and the Lane County Board of Commissioners in 2024 (Springfiel d Ordinance No. XXXX, and Lane County
Ordinance No. PA 1390 and Ordinance No. 23-07).
Exhibit B, Page 4 of 11
Attachment 1 Page 61 of 169
I-5
The degree to which the Metro Plan provides sufficient detail to meet the needs of each
jurisdiction will have to be determined by the respective jurisdictions. Where conflicts exist
among the Metro Plan, local comprehensive plans, refinement plans, and existing zoning, each
jurisdiction will have to establish its own schedule for bringing the zoning and refinement plans
into conformance with the Metro Plan or the applicable local comprehensive plan.
It is recognized that the needs, priorities, and resources vary with each jurisdiction and that the
methods and timing used to implement the Metro Plan or to conduct city-specific comprehensive
planning will also vary.
Relationship to Other Plans, Policies, and Reports
The Metro Plan is the basic guiding land use policy document for regional land use planning. As
indicated in the Purpose section, above, the region also utilizes: (a) city-wide comprehensive
plans; (b) functional plans and policies addressing single subjects throughout the area, including
the Eugene-Springfield Public Facilities and Services Plan (Public Facilities and Services Plan)
and the regional transportation system plan; and (c) neighborhood plans or special area studies
that address those issues that are unique to a specific geographical area. In all cases, the Metro
Plan is the guiding document for regional comprehensive land use planning and city-specific
plans may be adopted for local comprehensive land use planning. Refinement plans and policies
must be consistent with applicable provisions in the Metro Plan or the applicable local
comprehensive plan. Should inconsistencies occur, the applicable comprehensive plan is the
prevailing policy document. The process for reviewing and adopting refinement plans is
outlined in Chapter IV.
The following Metro Plan appendices are available at Lane Council of Governments (LCOG):
Appendix A Public Facility Plan Project Lists and Maps for Water, Stormwater, Wastewater,
Electricity, and Transportation [These lists and maps are located in Chapter II of
the 2001 Eugene-Springfield Metropolitan Area Public Facilities and Services
Plan and 2001 Eugene-Springfield Metropolitan Area Transportation Plan
(TransPlan)]
Appendix B List of Refinement and Functional Plans and Map of Refinement Plan Boundaries
Appendix C List of Exceptions and Maps of Site-Specific Exception Area Boundaries
Appendix D Auxiliary Maps showing the following:
Fire station locations
Urban growth boundary
Greenway boundary
Schools
Parks
The following Metro Plan appendix is available at the City of Eugene Planning and Development
Department:
Appendix E Eugene 2035 Transportation System Plan
Exhibit B, Page 5 of 11
Attachment 1 Page 62 of 169
I-6
Relationship to Lane County Rural Comprehensive Plan
The Plan Boundary shown on the Metro Plan Diagram in Chapter II is adjacent to the boundaries
of the Lane County Rural Comprehensive Plan that surround the Eugene-Springfield
metropolitan area. The Metro Plan Boundary on the east side of I-5 is coterminous with the
Springfield UGB. There is no overlap between the boundaries of the Metro Plan and the Lane
County Rural Comprehensive Plan. Lane Code Chapter 16 is applied in the area between the
UGB and the Plan Boundary to implement the Metro Plan.
Adjustments to boundaries may occur in the future so that areas previously a part of one plan are
covered under another plan. These adjustments may occur using the Metro Plan review and
amendment procedures described in Chapter IV.
Relationship to Statewide Planning Goals
The Metro Plan has been developed in accordance with the statewide planning goals adopted by
the Oregon Land Conservation and Development Commission (LCDC). These goals provide the
standards and set the framework for the planning programs of all governmental agencies and
bodies in the metropolitan area. Through the Metro Plan and the jurisdictions’ own land use
plans, the cities and county address the applicable LCDC goals (as well as local goals). In
response to the statutorily mandated adoption of separate urban growth boundaries for Eugene
and Springfield, each city will independently address some of the statewide planning goals in
their city-specific plans. For example, each city will provide the type and quantity of land
needed to support its own population as required by Statewide Planning Goals 9 (Employment),
10 (Housing) and 14 (Urbanization).
General Assumptions and Findings
The following general assumptions and findings relate to the entire Metro Plan. They are
included in the Introduction because of their general application.
General Assumptions5
1. A population of 286,000 is expected to reside within the metropolitan UGB by the year
2015. This is a 29 percent increase from the estimated 2000 census population of
222,500. Since this Metro Plan is designed to accommodate the expected population
rather than remain static until 2015, it can be adjusted periodically as changes in
population trends are detected.
2. Based on recent trends, the rate of population growth and the rate of in-migration are
projected to decrease.
5 These General Assumptions no longer apply within Springfield’s UGB (east of I nterstate 5) as a result of
Springfield’s establishment of its separate UGB and 20-year supply of residential land. Springfield Ordinance No.
6268 (June 20, 2011); Lane County Ordinance No. PA 1274 (July 6, 2011).
Exhibit B, Page 6 of 11
Attachment 1 Page 63 of 169
II-G-1
G. Metro Plan Diagram10
The Metro Plan Diagram is a generalized map and graphic expression of the goals, objectives,
and recommendations expressed in the applicable provisions of the Metro Plan and city-specific
plans. Rather than an accurate representation of actual size and shape, the arrangement of
existing and, to an even greater degree, projected land uses illustrated on the Metro Plan
Diagram, is based on the various elements and principles embodied in the Metro Plan and city-
specific plans. Likewise, statements in this section that prescribe specific courses of action
regarding the community’s future should be regarded as policies.
Projections indicated a population of approximately 286,000 was expected to reside in the
metropolitan area around the year 2015. The allocation of living, working, and recreational areas
and supporting public facilities that were shown on the Metro Plan Diagram when the 2004
Metro Plan Update was conducted and on the Public Facilities Maps in Appendix A generally
responded to that metro-wide projection. After Springfield and Eugene have (pursuant to ORS
197.304 (2007)) established their separate city-specific UGBs and designated land supplies for
their new 20-year planning horizons, the Metro Plan Diagram will be bifurcated. The area
shown east of Interstate 5 will represent the land use needs and supporting facilities necessary to
serve Springfield’s future population. The area shown west of Interstate 5 within the UGB will
represent the land use needs and supporting facilities necessary to serve Eugene’s future
population. Until both cities, with co-adoption by Lane County, have taken action to establish
their independent UGBs and land supplies, the Metro Plan Diagram will serve different purposes
for the two cities.11
Finally, the Metro Plan Diagram is drawn at a metropolitan scale, necessitating supplementary
planning on a local level. The original Metro Plan Diagram adopted in the 1982 Metro Plan and
subsequently amended was not tax lot-specific, although exception areas were site specific, with
exact designation boundaries shown in supporting working papers. The use of the Regional
Land Information Database (RLID) data for long-range planning studies led to the decision to
base the Metro Plan Diagram on RLID data, as described below. The Metro Plan Diagram and
text provide the overall framework within which more detailed planning occurs on the local
level.
In practice, the Metro Plan amendment process described in Chapter IV will ensure that issues of
metropolitan significance are addressed cooperatively by all three jurisdictions.
Major Influences
10 The Metro Plan was amended to reflect adoption of the Springfield Comprehensive Plan Land Use Element and
Springfield Comprehensive Plan Map, which replaces the text in this Chapter and removes the plan designations
shown on the Metro Plan Diagram for areas within Springfield’s urban growth boundary . These amendments were
adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield
Ordinance No. XXXX, and Lane County Ordin ance No. PA 1390 and Ordinance No. 23-07).
11 As part of the adoption of the City of Springfield’s city-specific UGB (through Springfield Ordinance No. 6268
and Lane County Ordinance No. PA 1274 in 2011, the Metro Plan Diagram was amended so that the area west of
Interstate 5 is no longer included in Springfield’s UGB. In 2017, the area included in the City of Eugene’s UGB
(the area west of Interstate 5) was expanded (through Eugene Ordinance No. 20584 and Lane County Ordinance No.
PA 1345).
Exhibit B, Page 7 of 11
Attachment 1 Page 64 of 169
II-G-16
Insert Metro Plan Diagram –
Amend the Metro Plan Diagram to no longer show plan designations within the Springfield UGB
(i.e. Metro Plan Boundary east of I-5) and add a note to the Diagram:
“The Metro Plan was amended to reflect adoption of the Springfield Comprehensive Plan Map,
which replaces the plan designations shown on the Metro Plan Diagram for areas within
Springfield’s urban growth boundary. These amendments were adopted by Springfield City
Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance
No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07).
Insert Metro Plan Boundaries Map
Exhibit B, Page 8 of 11
Attachment 1 Page 65 of 169
III-D-1
D. Willamette River Greenway, River Corridors, and Waterways
Element
The Willamette River has long been recognized in the Eugene-Springfield area as a valuable
natural asset. A number of policy documents and programs adopted by local jurisdictions have
reinforced the community concern to preserve and protect metropolitan river corridors.
On December 6, 1975, the Land Conservation and Development Commission (LCDC) adopted
Statewide Planning Goal 15: Willamette River Greenway. The goal sets forth the overall
framework within which state and local governments carry out protection and maintenance of the
Willamette River Greenway.
The goal requires Eugene, Springfield, and Lane County to adopt Greenway boundaries, to
specify uses permitted within those boundaries, and indicate areas of potential acquisition along
the Greenway. In making these determinations, local jurisdictions must gather information and
inventory the nature and extent of all natural resources associated with the Willamette River
Greenway. Local jurisdictions are also mandated to adopt provisions, by ordinance, requiring a
compatibility review permit for any intensification, change of use, or development within
Greenway boundaries. The jurisdictional area of the Metro Plan (i.e., Metro Plan Boundary)
was found to be in compliance with Goal 15 on September 12, 1982.
In the metropolitan area, a large portion of land within the Greenway is in public ownership or
public parks such as Mount Pisgah, Skinner’s Butte, Alton Baker, and Island Park. Future
proposed park acquisitions, such as the Goodpasture Island gravel ponds, will further expand the
opportunity for public access and enjoyment of the river area. The three jurisdictions cooperated
in the development of a bicycle-pedestrian trail system that extends along the Greenway from
south of Springfield to north of Eugene and into the River Road area. This system includes five
bike bridges across the river.
Land along the Greenway in private ownership is in a variety of uses, some of which appear to
provide greater opportunity than others for public access and enjoyment. Residential uses along
the Greenway can provide the residents with access to the river area. Certain commercial uses,
such as restaurants, can allow customers visual enjoyment of the Greenway. Other uses, such as
the many industrial uses, would appear to provide little if any opportunity for access or
enjoyment of the Greenway. This is evidenced by much of the existing industrial development
along the Willamette River in the Glenwood area.
Finally, in rural agricultural areas, isolated access points can work to the detriment of the
Greenway program. In these areas, trespass and vandalism can cause a detraction in the general
Greenway environment and create problems for private landowners.
Exhibit B, Page 9 of 11
Attachment 1 Page 66 of 169
III-D-2
The Greenway boundaries, as adopted by the three jurisdictions, have been digitized in the
Regional Land Information Database (RLID) and are shown as an overlay on Plan Diagram.27
Future acquisition areas and uses allowed within the Greenway remain the primary responsibility
of the local jurisdictions. This element, however, provides the basis for a coordinated effort by
Eugene, Springfield, and Lane County.
The statewide Greenway goal specifically applies to the Willamette River. In the Eugene-
Springfield area, portions of the McKenzie River share equal importance as a natural resource
worthy of conservation and protection. Additionally, the metropolitan network of waterways and
associated creeks and drainageways are important features in the metropolitan area, with
potential as part of an areawide waterways system. For that reason, while this element must
specifically cover the Willamette River Greenway, it is important to consider the McKenzie
River, where it is situated within the area of the Metro Plan and the inland system of waterway
corridors connecting various parts of Springfield, Eugene, and Lane County to one another.
Goal
To protect, conserve, and enhance the natural, scenic, environmental, and economic qualities of
river and waterway corridors.
Findings, Objectives, and Policies
Findings
1. The Willamette and McKenzie Rivers are recognized as valuable natural assets to the
entire community.
2. In addition to the Willamette and McKenzie Rivers, a number of waterways are important
environmental features in the metropolitan area. These include, for example, the
Springfield Millrace, Amazon Creek, Fern Ridge Reservoir, and the Eugene Millrace.
3. Recently, the community has begun to realize the potential of inland waterway corridors
to contribute to the livability of the area.
4. In addition to its significance to agriculture, flood control, and fish and wildlife, Fern
Ridge Reservoir continues to grow in importance as a recreational water facility.
5. Statewide Planning Goal 15 mandates local governments to establish the Greenway
boundaries, allowed uses within the Greenway and potential acquisition areas.
27 The Metro Plan was amended to reflect adoption of the Springfield Comprehensive Plan Map, which replaces
the plan designations shown on the Metro Plan Diagram for areas within Springfield’s urban growth boundary
(UGB). These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of
Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and
Ordinance No. 23-07). The Springfield Comprehensive Plan Map shows the portion of the Willamette River
Greenway boundary within the Springfield UGB and in portions of Lane County just south of the Springfield UGB
in order to show the extent of the boundary on both sides of the Willamette River.
Exhibit B, Page 10 of 11
Attachment 1 Page 67 of 169
V-3
24. Key urban facilities and services:
Minimum level: Wastewater service, stormwater service, transportation, solid waste
management, water service, fire and emergency medical services, police protection, city-
wide parks and recreation programs, electric service, land use controls, communication
facilities, and public schools on a district-wide basis (in other words, not necessarily
within walking distance of all students served).
Full range: The minimum level of key urban facilities and services plus urban public
transit, natural gas, street lighting, libraries, local parks, local recreation facilities and
services, and health services.
25. Low-income housing: Housing priced so that a household at or below 80 percent of
median income pays no more than 30 percent of its total gross household income on
housing and utilities. (HUD’s figure for 1997 annual 80 percent of median income for a
family of three in Lane County is $27,150; 30 percent = $687/month.)
26. Manufactured dwelling: A structure constructed at an assembly plant and moved to a
space in a manufactured dwelling park or a lot. The structure has sleeping, cooking, and
plumbing facilities and is intended for residential purposes.
27. Manufactured dwelling park: Any place where four or more manufactured dwellings are
located within 500 feet of one another on a lot, tract, or parcel of land under the same
ownership, the primary purpose of which is to rent or lease space.
28. Metro Plan Plan Boundary: Defines that area shown on the Metro Plan Diagram that
includes Springfield, Eugene, and unincorporated urban, urbanizable, rural, and
agricultural lands exclusive of areas encompassed in the Lane County Rural
Comprehensive Plan. The Metro Plan Boundary on the east side of I-5 is coterminous
with the Springfield urban growth boundary. (Note: Assumes boundaries between the
area of the Metro Plan and the Lane County Rural Comprehensive Plan will coincide.)
29. Metro Plan Diagram: A graphic depiction in the Metro Plan of: (a) the Metro Plan
Boundary (Plan Boundary); (b) urban growth boundaries; and (c) the land uses planned
for the Eugene metropolitan area, as described in Metro Plan Chapter II-G.34
30. Metropolitan area: Generally, an area that includes and surrounds a city or group of
cities. The Eugene-Springfield metropolitan area is the area within the Metro Plan Plan
Boundary (Plan Boundary).
34 The Springfield Comprehensive Plan Map replaces the plan designations shown on the Metro Plan Diagram for
areas within Springfield’s urban growth boundary (UGB). These amendments were adopted by Springfield City
Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and
Lane County Ordinance No. PA 1390 and Ordinance No. 23-07). The Metro Plan Diagram will continue to show the
Metro Plan Boundary and Springfield UGB. The Springfield Comprehensive Plan Map will show plan designations
within the Springfield UGB and will also show the Springfield UGB.
Exhibit B, Page 11 of 11
Attachment 1 Page 68 of 169
Exhibit C
Neighborhood Refinement Plan Amendments for Co-adoption
Gateway Refinement Plan:
•Replace the Parks and Open Space designation with a Public Land and Open Space
designation, as shown on the Refinement Plan Diagrams in Exhibit A
•Apply Nodal Development as an overlay where shown on the Metro Plan Diagram, as
shown on the Refinement Plan Diagrams in Exhibit A
•Replace the Parks and Open Space designation with Public Land and Open Space, as
shown in track changes on the following pages
•Replace reference to the Metro Plan Diagram with reference to the Springfield
Comprehensive Plan Map and replace reference to the Metro Plan text with reference
to the Springfield Comprehensive Plan, as shown in track changes on the following
pages
•Add text referencing the Springfield Comprehensive Plan to make the distinction
between the Metro Plan and/or relationship to refinement plans, as shown in track
changes on the following pages
Glenwood Refinement Plans (1999 and 2014 plan update):
•Replace the Public Land and Parks and Open Space designations with a Public Land and
Open Space designation, as shown on the Refinement Plan Diagrams in Exhibit A
•Replace the public/semi-public references and Public/Semi-Public designation with a
Public Land and Open Space designation, as shown in track changes on the following
pages
•Remove reference to the Metro Plan Diagram or replace with reference to the
Springfield Comprehensive Plan Map, as shown in track changes on the following pages
•Replace reference to the Metro Plan text with reference to the Springfield
Comprehensive Plan, as shown in track changes on the following pages
•Add text referencing the Springfield Comprehensive Plan to make the distinction
between the Metro Plan and/or relationship to refinement plans, as shown in track
changes on the following pages
Exhibit C, Page 1 of 33
Attachment 1 Page 69 of 169
GATEWAY REFINEMENT PLAN
(Interim Printing June 2023)
Prepared by:
Development and Public Works Department
City of Springfield
ADOPTION DATES:
City of Springfield – October 19, 1992
Lane County – September 1, 1992
City of Eugene (Metro Plan Amendments Only) – November 9, 1992
TEXT AMENDMENT DATES:
January 10, 2005
DIAGRAM AMENDMENT DATES:
July 6, 1993
August 17, 1993
November 18, 1999
December 9, 2002
April 21, 2003
July 7, 2003
January 10, 2005
January 22, 2019
April 15, 2019
October 21, 2019
May 18, 2020
Exhibit C, Page 2 of 33
Attachment 1 Page 70 of 169
GATEWAY REFINEMENT PLAN INTRODUCTION
1
INTRODUCTION
PURPOSE
The Gateway Refinement Plan (Refinement Plan) is one of several Springfield refinement plans that refine and augment
the Eugene-Springfield Metropolitan Area General Plan (Metro Plan). The Metro Plan is the general land use policy
document that guides all land use decision making in Springfield, Eugene, and Lane County. “Sub -area” or
neighborhood” refinement plans are developed to provide more specific application of Metro Plan policies, and to provide
site-specific determination of Metro Plan land use designations. Refinement plans resolve any pre-existing conflicts
between local zoning districts and Metro Plan designations. They also provide the opportunity to examine, in greater
detail, the area’s future public facilities and transportation needs, and to resolve potential conflicts between adjoining la nd
uses. “All refinement plans and regulatory measures must be consistent with the Metropolitan Plan, and should
inconsistencies occur, the Metropolitan Plan is the prevailing policy document.” (Metro Plan, 1987, p. IV -3)
The Gateway Refinement Plan guides local development and decisions with land use policies addressing this area’s
specific issues and needs. The application of site-specific plan designations is based on findings of fact and clear criteria.
Refinement Plan designations, policies, and implementation actions are designed to minimize the negative impacts of
development on existing residential neighborhoods and natural resources, while facilitating development consistent with
applicable comprehensive plans.
PLAN RELATIONSHIPS TO OTHER PLANS
The Refinement Plan Diagram is more specific than the Metro Plan Diagram. Whereas the Metro Plan Diagram is of a
scale that illustrates only general area designations, the Refinement Plan Diagram provides site-specific land use
designations that sometimes cover areas too small to appear on the Metro Plan Diagram. Like all other elements of the
Gateway Refinement Plan, the Refinement Plan Diagram must be consistent with the Metro Plan Diagram. Upon
adoption (consistent with the Metro Plan), the Gateway Refinement Plan shall be definitive in making site-specific land
use decisions. Land use decisions made as a result of adoption of this Plan shall be incorporated into Metro Plan
inventories and shall be reflected on the Metro Plan Diagram as part of the next Metro Plan update.
In addition to serving as a land use policy guideline and as an information source, this Refinement Plan will guide local
decision-makers in dealing with area issues and infrastructure needs. This Refinement Plan will be used in conjunction
with the Metro Plan, TransPlan, the Public Facilities Plan, and the Willamalane Comprehensive Plan in making land use
and public facilities decisions for the Gateway area. The Gateway Refinement Plan also is intended to provide certainty
for developers and residents throughout the land development process. The application of site-specific land use
designations is based on findings of fact, and clear and understandable criteria. Refinement Plan land use designations,
policies, and implementation actions are designed to minimize the negative impacts of development on existing residential
neighborhoods and natural resources, while facilitating commercial and industrial areas to develop consistent with the
Metro Plan, and with the growing economic development needs of the greater metropolitan area community.
COMPREHENSIVE PLANS
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long -range comprehensive plan that
establishes the broad policy framework upon which Springfield, Eugene, and Lane County make coordinated land use
decisions within the Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its own
Comprehensive Plan, which started with a Metro Plan amendment to establish a Springfield urban growth boundary and
adopt a city-specific residential element (chapter). The City has since added more elements to the Springfield
Comprehensive Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes
city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield urban
growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield’s applicable
comprehensive plans.
Exhibit C, Page 3 of 33
Attachment 1 Page 71 of 169
GATEWAY REFINEMENT PLAN INTRODUCTION
2
Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific comprehensive plans, and
refinement plans. Some Springfield Comprehensive Plan elements explicitly supplant the relevant portion of the Metro
Plan while others supplement the Metro Plan. For information about how the different elements of the Metro Plan apply to
Springfield, see the Preface of the Springfield Comprehensive Plan.
The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield
Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter II-G and remove the plan
designations shown on the Metro Plan Diagram for areas within Springfield’s urban growth boundary. These amendments
were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield
Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07).The Springfield
Comprehensive Plan Map includes the plan designations from adopted Neighborhood Refinement Plan Diagrams. An
updated Refinement Plan Diagram reflecting amendments since the Refinement Plan’s original adoption and some minor
plan designation name changes is included prior to the Table of Contents in this document. The original Refinement Plan
Diagram is retained on page 5 for historical reference.
NEIGHBORHOOD REFINEMENT PLANS
Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due to more
detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or restrictive policies typically
prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret
the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive
Plan.
Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate changes made
through adoption of more recent plans. For example, adoption of Springfield’s Transportation System Plan resulted in
changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement
Plans. In such cases, the more recently adopted plan generally prevails.
PLANNING PROCESS
Springfield began land use planning activities in 1968 with the development of the 1990 Plan, a metropolitan-wide long-
range plan. Springfield grew rapidly between 1968 and 1982. During that time, Springfield conducted planning studies
and continued participating in Metropolitan-level planning work in response to the 1975 adoption of Oregon’s Statewide
Planning Goals and Guidelines. The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) was developed by
Springfield, Eugene, and Lane County to replace the 1990 Plan, and was acknowledged by the Land Conservation and
Development Commission (LCDC) in 1982 for compliance with the Statewide Goals and Guidelines.
The Metro Plan was most recently updated in 1987, and it continues to undergo periodic review and updates to ensure
that it reflects changing circumstances in the metropolitan area, and to ensure continued compliance with LCDC goals.
(E.g., in 1990-91 the Natural Resources Special Study and the Industrial Lands Special Study were developed as updates
to the Metro Plan.) The Metro Plan Update process, which was initiated in 1986, provides an overall review of the Metro
Plan, including its findings, research, data, assumptions, and projections. The update process provides the mechanism
for “re-evaluating and possibly changing or modifying basic concepts, goals, and policies.” (Metro Plan, p. IV-5) As a
result of the 1986-87 Update Process, the Metro Plan was amended and republished in 1987.
The refinement planning process is provided by the Metro Plan as a means to address the special needs of specific
geographical areas and/or special purpose or functional elements, “as determined appropriate by each governing body”
(Metro Plan, p. IV-5). Springfield began its refinement planning program in the early 1980’s, and had adopted
neighborhood refinement plans covering several geographically defined areas throughout the City. The Gateway
Refinement Plan is the first Springfield refinement plan that included land outside the City limits.
Lane County and the City of Springfield entered into an urban transition agreement in 1986, which transferred planning
and building jurisdiction in the urbanizable area to the City. Under this agreement, the City is responsible to plan for the
future land use, facilities, and transportation needs of the area, based on the goals, policies, and projections of the metro
plan. Lane County, however, must jointly adopt land use planning regulations that are to be applied in the urbanizable
area. Adoption of this Refinement Plan was therefore contingent on approval by the elected officials of Lane County as
well as the City of Springfield. This Refinement Plan also was reviewed by the City of Eugene. Metro Plan Diagram
amendments, as well as amendments to the TransPlan and the Public Facilities Plan, proposed in association with this
Refinement Plan, were adopted by all three jurisdictions.
Exhibit C, Page 4 of 33
Attachment 1 Page 72 of 169
GATEWAY REFINEMENT PLAN Residential Element
9
RESIDENTIAL ELEMENT
INTRODUCTION
The Residential Element of the Gateway Refinement Plan addresses lands within the Refinement Plan area that are
residentially designated on the Metro Plan Diagram. It also addresses conditions that may warrant changes in Metro
pPlan designations to reflect more appropriate uses (consistent with Metro Plan text), or to acknowledge well-
established, compatible residential uses consistent with the goals and policies of applicable comprehensive plans,
which meet the goals and policies of the Metro Plan , and which would otherwise be considered non-conforming. The
purpose of this Element is to provide site-specific application of adopted Metro Plan residential land useplan
designations, to resolve plan/zone conflicts, and to resolve land use conflicts as they relate to the livability of
residential neighborhoods. This Element also is intended to implement the Metro Plan’s “Residential Land Use and
Housing Element” policies by providing policies to guide development of the remaining vacant residential land in the
Refinement Plan area.
Three residential land useplan designations are established on the Refinement Plan Diagram, i.e., Low Density
Residential (LDR), Medium Density Residential (MDR), and High Density Residential (HDR). An overview and
analysis of residentially-designated areas, an assessment of relevant land use issues, and the designation criteria
used to assess the appropriateness of residential designations in potential conflict areas are included in the
Residential Element of the GRP Technical Supplement. Findings, which support the residential policies, also are
included in the Residential Element of the GRP Technical Supplement, and are divided into four s ub-areas; 1) South
Harlow Sub-areas; 2) Gateway Multi-Family Sub-areas; 3) Game Farm Single-Family Sub-areas; and 4) McKenzie-
Gateway MDR Sub-areas. (See the “Residential Sub-areas” Map on page 18.)
GOALS
1. Provide for a diversity of sound, affordable housing in the Refinement Plan area.
2. Ensure availability of adequate supplies of land appropriate for low-medium-, and high-density residential
development, while allowing for an appropriate mix of commercial, employment, and residential uses. (Text
amended by Ordinance No. 6109, adopted January 10, 2005.)
3. Achieve the gross densities allowed in the Metro Springfield Comprehensive Plan for LDR (up to 10 du/gross
acre), MDR (11-20 du/gross acre), and HDR (21-30 du/gross acre). Encourage optimization of densities,
reducing the amount of underdeveloped land within the three categories in order to achieve the Metro Plan’s
overall target density (for all residential development in urbanized areas) of 6 du/acre.
4. Minimize potential conflicts between LDR, MDR and HDR uses, and between residential and other less
intensive land uses.
5. Maintain and enhance the livability of Refinement Plan area neighborhoods.
6. Minimize adverse environmental impacts of residential development. Integrate identical natural assets into
residential development planning to the maximum extent practicable.
7. Minimize the adverse impacts of public facilities on residential neighborhoods.
8. Ensure efficient and safe transportation systems in and around residential areas. Promote walking and
bicycling as alternative modes of travel by providing pathway connections between residential areas and
other important destinations.
Exhibit C, Page 5 of 33
Attachment 1 Page 73 of 169
GATEWAY REFINEMENT PLAN Residential Element
10
9. Work on an incentive-based approach for acquisition or use of areas to be dedicated for recreational
pathways and other public amenities.
POLICIES AND IMPLEMENTATION ACTIONS
1.0 The City shall, through site plan review, home and neighborhood improvement programs, and/or other
related programs, actively participate in efforts to maintain and enhance existing residential neighborhoods
and attract compatible multi-family developments that would enhance the Gateway Refinement Plan area.
2.0 The City shall provide continued support for the Substantial Home, Rental Rehabilitation, and Emergency
Minor Home Repair Programs, using Community Development Block Grant funds and/or other sources.
3.0 Mitigate negative impacts on the Beverly Park and Ken Ray subdivisions from the freeway traffic on I -5.
3.1 Work with the appropriate agencies to establish a buffer planting of trees a nd shrubs in the open area
between I-5 and the Beverly Park and Ken Ray Park subdivisions.
4.0 Identify potential wetlands in the Clear Vue neighborhood, and improve pedestrian access to Guy Lee Park
and School.
4.1 Require a wetlands assessment and delineation of Assessor’s map 17-03-27-12, Tax Lot 4000, east
of the Guy Lee Ash Forest, prior to granting development approval. Work with the property-owner,
Willamalane and School District 19 to investigate the feasibility of including wetlands or potential
wetlands in the demonstration wetland restoration project proposed in Policy 6.2 of the Natural
Assets, Open Space/Scenic Areas, and Recreation Element.
4.2 Through the site plan review, partition, and subdivision processes, require easements as needed to
establish pedestrian connections from the Lindale multi-family residential area to the east, through
Clear Vue Lane neighborhood, to Guy Lee Park and School, especially along SCS Channel 6.
5.0 Resolve the existing plan/zone conflict at the Shady View PUD (see GRP Tech. Supp., Residential
Element, Map 3, Area 5).
5.1 Rezone the Shady View PUD from MDR to LDR, consistent with the existing Metro pPlan
designation.
5.2 Existing and future developments on Assessor’s map 17-03-27-12, lot #’s 1100, 1200, 1300, and
1400, in the Shady View PUD, shall not be considered non-conforming uses in terms of minimum lot
size or maximum density requirements.
6.0 Resolve the existing plan/zone conflicts at the Lindale Street Multi-family Residential Area (see GRP Tech.
Supp., Residential Element Map 3, Area 6).
7.0 Recognize the suitability of Assessor’s map 17-03-27-12, tax lot #500 (Sampson property; GRP Tech.
Supp., Residential Element Map 3, Area 7) for HDR development.
7.1 Redesignate and rezone Assessor’s Map 17-03-27-12, tax lot #500 to HDR.
8.0 Resolve the existing plan/zone conflict at the southwest quadrant of the Game Farm/Harlow intersection.
8.1 Rezone Assessor’s map 17-03-22-44, tax lot #7200 from HDR to MDR, consistent with its existing
Metro pPlan Designation.
Exhibit C, Page 6 of 33
Attachment 1 Page 74 of 169
GATEWAY REFINEMENT PLAN Residential Element
11
9.0 Recognize the suitability of GO zoning at the McKenzie-Willamette site, and at the adjacent Evans and Dilts
properties (see GRP Tech. Supp., Residential Element Map 3, Areas 9, and 10), while mitigating n egative
impacts on the neighboring uses from future GO development.
9.1 Consistent with applicable goals and policies of the Metro Plan and of this Refinement Plan, and with
the intent of the GO District, GO zoning at the MDR-designated McKenzie-Willamette site, and at the
Evans and Dilts properties, shall not be considered a plan/zone conflict.
9.2 Redesignate the Evans and Silts properties (Assessor’s map 17-03-27-22, tax lot #’s 300 and 200)
from LDR to MDR.
9.3 Rezone the Evans and Dilts properties from LDR to GO. These two properties shall be exempt from
the 1-acre minimum development area standard established in the SDC for the GO District.
9.4 Through the site plan review process, require a landscaped from yard setback of 10 feet at the
McKenzie-Willamette site. Encourage the special treatment of the Harlow Road frontage to enhance
the visual quality of this entry to the City.
9.5 Through the site plan review process, require a 15-foot landscaped setback from GO-zoned sites
property lines adjacent to residential areas to the south. Pay special attention to the need to buffer
the adjacent residential area from potential negative impacts from the proposed medical services
center.
9.6 Require a development Area Plan (DAP) for the entire McKenzie-Willamette site prior to development
approval for any portion.
9.7 Coordinate with McKenzie-Willamette Hospital, as well as with Guy Lee School, School District 19,
the Guy Lee PTA, and affected property owners, when planning for the placement and construction of
the possible future pedestrian overpass at Guy Lee School.
9.8 Through the site plan review process, require a detailed traffic impact study in connection with future
GO development, with special attention to potential traffic impacts at the Guy Lee School crossing at
the Harlow/Hartman intersection.
9.9 Through the site plan review process, pay close attention to visibility of the Harlow Road/Hartman
Lane intersection to maximize safety at the Guy Lee School crossing.
10.0 Improve access to the Granada Subdivision and to the undeveloped MDR-designated land between
Harlow Road and Oakdale Street, while addressing concerns regarding pedestrian safety at the
Harlow/Hartman school crossing. (See GRP Tech. Supp., Residential Element Map 4.)
10.1 Through the site plan review, partition, and subdivision processes, consider the need for requiring
improvement agreements and dedication of rights-of-way to provide access to the development
area and adjacent Granada Subdivision.
10.2 Require traffic impact studies in connection with development planning for the McKenzie-
Willamette site and the undeveloped MDR-designated land between Harlow and Oakdale. These
studies shall address concerns regarding pedestrian safety at the Harlow-Hartman school
crossing.
11.0 Recognize that the vacant 5-acre site (the northerly 5 acres of Assessor’s map 17-03-22, tax lot #2600)
on Pheasant Boulevard, north of Harlow Road, has limited capability for development at HDR densities
and that it is more suitable for MDR development. Protect LDR uses to the north from potential negative
impacts resulting from such MDR development. (See GRP Tech. Supp., Residential Element Map 4,
area 2.)
11.1 Redesignate and rezone the northerly 5-acres of Assessor’s map 17-03-22, tax lot #2600 from
HDR to MDR.
Exhibit C, Page 7 of 33
Attachment 1 Page 75 of 169
GATEWAY REFINEMENT PLAN Residential Element
12
11.2 Through the site plan review process, require improvements agreements and dedication of right -
of-way for the Oakdale extension, in a manner consistent with the policies of the Transportation
Element of this Refinement Plan, prior to development approval.
11.3 Through the site plan review process, pay special attention to buffering the adjacent LDR uses
from potential negative impacts and to protecting their solar access, as well as to minimizing land
use conflicts between proposed MDR development and ex isting or future CC development to the
south.
12.0 Allow rezoning of land within the “McKenzie-Gateway MDR site” to Medical Services (“MS”) on land
designated Community Commercial or Mixed Use on the Metro Plan diagram, and rezoning to Mixed Use
Commercial (“MUC”) on land designated Mixed Use on the Metro Plan diagram as implemented during
Master Plan and/or during the City’s nodal implementation project. (Text amended by Ordinance No.
6109, adopted January 10, 2005.)
12.1 Redesignation of a total of 99 acres land within the city limits at the McKenzie/Gateway MDR site
to Community Commercial and/or Mixed Use through the Metro Plan amendment process shall
be allowed-and shall be implemented by application of Mixed Use Commercial (“MUC”) or
Medical Services (“MS”) zoning district through the Master Plan approval and/or during the City’s
nodal implementation project. (Text amended by Ordinance No. 6109, adopted January 10,
2005.)
12.2 Rezoning to NC shall be allowed for the following historic houses, and up to .3 acre of the
associated property (these re-zonings shall be exempt from the 3-acre maximum area specified
in policy 12.1): Stowbridge House, 203 Deadmond Ferry Road, (c. 1930); Conley Farm House,
3345 Game Farm Road (c. 1920) un-named house at 273 Deadmond Ferry Road (c. 1925). The
following provisions shall apply:
a) Re-zoning of these properties shall occur automatically upon approval (under Type II
procedure) of a site plan for the properties listed in 12.2.
b) City landmark status shall be applied, in all cases, in conjunction with rezoning of the
properties identified in 12.2, and future expansion or remodeling shall comply with all
provisions of SDC Article 30 [now Section 3.3.900].
c) Development Area Plan requirements are waived for approved NC uses in historic structures.
12.3 Rezoning of the properties specified above shall not preclude maintenance of a residence at the
site (i.e., a residential use shall not be considered non-conforming with NC zoning applied at any
of the historic resource sites).
12.4 In addition to all applicable standards and provisions regulating development in Springfield, any
development adjacent to the McKenzie River or McKenzie River riparian setback shall provide
public access to the McKenzie River or McKenzie River riparian setback. Surface parking areas
shall not be visible from the McKenzie River corridor and shall be screened from public streets.
(Text amended by Ordinance No. 6109, adopted January 10, 2005.)
12.5 MU districts within the McKenzie-Gateway MDR Site shall meet the provisions of SDC Article 40
[now Section 3.2.600]. (Text amended by Ordinance No. 6109, adopted January 10, 2005.)
12.6 Within the city limits at the McKenzie-Gateway MDR Subarea, the Medical Services (“MS”)
zoning district shall implement the Community Commercial designation if part of an approved
Master Plan for development of a major medical facility. The adopted Master Plan shall
demonstrate that the subject property will be able to accommodate the number of housing units
within the range for the MDR land use designation in the Metro Plan and Gateway Refinement
Plan. In addition to meeting the standards of the SDC, at the time of Master Plan approval, the
Exhibit C, Page 8 of 33
Attachment 1 Page 76 of 169
GATEWAY REFINEMENT PLAN Commercial Element
18
COMMERCIAL ELEMENT
INTRODUCTION
The Commercial Element of the Gateway Refinement Plan addresses lands within the Refinement Plan area that are
commercially designated on the Metro Plan Diagram. It also addresses conditions that may warrant changes in Metro
pPlan designations (or application of compatible Refinement Plan designations) to reflect more appropriate uses
(consistent with Metro Plan text), or to acknowledge well-established, compatible commercial uses, which meet the goals
and policies of applicable comprehensive plansthe Metro Plan, and which would otherwise be considered non-conforming.
The purpose of this Element is to provide site-specific applications of adopted Metro Plan commercial land useplan
designations, to resolve plan/zone conflicts, and to resolve identified land use conflicts and neighborhood compatibility
issues.
Three types of commercial land useplan designations are established on the Refinement Plan Diagram, i.e., Community
Commercial (CC), Neighborhood Commercial (NC), and General Office (GO). The “Commercial Areas” Map on page 23
shows the primary commercial areas within the Refinement Plan area. An overview and analysis of commercially -
designated areas, an assessment of relevant land use issues, and the designation criteria used to assess the
appropriateness of commercial designations in potential conflicts areas are included in the Commercial Element of the
GRP Technical Supplement. Findings, which support the commercial policies, also are included in the Commercial
Elements of the GRP Technical Supplement.
GOALS
1. Improve the appearance and vitality of all commercial activities in the Gateway Refinement Plan area, especially
those that promote regional economic development and provide everyday neighborhood services.
2. Minimize potential conflicts between residential and commercial development.
3. Ensure availability of an adequate supply of land appropriate for commercial development.
POLICIES AND IMPLEMENTATION ACTIONS
1.0 Provide for appropriate buffering between commercial and adjacent residential uses.
1.1 Give particular attention, during the site plan review process, to minimizing lighting, noise, and visual
impacts from commercial development on adjacent residential areas.
2.0 Improve the appearance of the freeway commercial area around the intersection of Gateway Street and Belt
Line Road.
2.1 As part of the site plan review process for development, require all landscaped areas to be at least 75
percent covered with living plant materials within 3 years of the date of installation.
2.2 Through the site plan review process requires 7.5% of the interior of parking lots visible from arterials and
collectors to be landscaped. Require vegetative screening of parking lots. Allow such vegetative screens
to include shrubs to 3 ½’ high, except in vision clearance areas.
2.3 Require properties developing along the potential access routes to the McKenzie-Gateway Special Light
Industrial site to provide planter strip and front yard landscaping designed to enhance the site’s entryway.
Examples could include additional street trees and landscaped areas.
Exhibit C, Page 9 of 33
Attachment 1 Page 77 of 169
GATEWAY REFINEMENT PLAN Industrial Element
22
INDUSTRIAL ELEMENT
INTRODUCTION
The Industrial Element of the Gateway Refinement Plan addresses lands within the Refinement Plan area that currently
have industrial Metro pPlan designations, and lands that may warrant re-designation in order to reflect a more appropriate
use, or to acknowledge a pre-existing, well-established, compatible use that would otherwise be considered non-
conforming. The purpose of this Element is to provide site-specific application of adopted Metro Plan industrial land
useplan designations, to resolve plan/zone conflicts, and to resolve identified land use conflicts and neighborhood
compatibility issues.
Two industrial land useplan designations are established on the Refinement Plan Diagram, i.e., Special Light Industrial
(SLI), and Light-Medium Industrial (LMI). The Refinement Plan Diagram also indicates a “mixed-use asterisk” for a
portion of the LMI-designated area, which allows for limited development of commercial uses. An overview and analysis
of industrially-designated areas, an assessment of relevant land use issues, and the designation criteria used to assess
the appropriateness of industrial designations in potential conflicts areas are included in the Industrial Element of the GRP
Technical Supplement. Findings, which support the industrial policies, also are included in the Industrial Element of the
GRP Technical Supplement, and are divided into three sub-areas: 1) Shelley Street Sub-area; 2) “Q”/Laura Street Mixed-
Use Sub-areas; and 3) the McKenzie-Gateway SLI Site. (See the “Industrial Areas” Map on page 30.)
GOALS
1. Enhance the appearance and economic viability of the Shelley Street and the “Q”/Laura Street Sub -areas.
2. Minimize environmental impacts associated with industrial development in the Refinement Plan area.
3. Minimize potential conflicts between industrial and commercial development in the Shelley Street and “Q”/Laura
Street Sub-areas and the neighboring residential developments to the north, and between the commercial and
industrial developments within the “Q”/Laura Street Sub-areas.
4. Minimize uncertainty in the development process, as it applies to the “Q”/Laura Sub-area.
5. Recognize the existing mix of commercial and industrial uses in the “Q”/Laura Street Sub -areas, and the
suitability of this area for a limited amount of CC uses, while preserving its suitability for its primary (industrial)
purpose.
6. Encourage infill development in the Shelly Street and “Q”/Laura Street Sub-areas, consistent with Metro Plan
policy guidance.
7. Ensure the suitability and desirability of the McKenzie-Gateway SLI Site for its primary intended (Special Light
Industrial) use in a way that is consistent with the campus-industrial park concept.
8. Ensure the orderly and efficient development of the McKenzie-Gateway SLI Site.
9. Ensure the economic viability and attractiveness of the McKenzie-Gateway SLI Site development.
10. Minimize the potential for conflict between McKenzie-Gateway SLI Site development and other neighboring land
uses, including existing on-site residential and agricultural uses.
11. Minimize impacts of McKenzie-Gateway SLI Site development on scenic, environmental and cultural resources.
Exhibit C, Page 10 of 33
Attachment 1 Page 78 of 169
GATEWAY REFINEMENT PLAN Industrial Element
24
5.2 The City shall, no later than six months following the adoption of this Refinement Plan, amend the SDC to
include a Mixed-Use LMI/CC zoning District, with development standards and approval criteria designed
to address compatibility and traffic issues.
5.3 When the SDC has been amended to include the MU LMI/CC zoning District, all properties in the
“Q”/Laura Street Sub-area will be rezoned MU LMI/CC.
5.4 CC uses not specifically listed in SDC Article 20 [now Section 3.2.400] as permitted in the LMI District
shall be allowed on a maximum of 40% (14 acres) of the “Q”/Laura Mixed-Use Sub-area.
5.5 In the interim (until items 5.2 and 5.3 above have been implemented) all uses permitted in the LMI Zoning
District, Article 20 of the SDC [now Section 3.2.400], shall be permitted in the “Q”/Laura Mixed-Use Sub-
area, as follows:
a) Such uses shall comply with the provisions of SDC Article 20 (LMI, HI, and SHI Industrial
Zoning Districts) [now Section 3.2.400]; and
b) Such uses shall be zoned LMI.
5.6 In the interim (until item 5.2 and 5.3 above have been implemented), CC uses not specifically listed in
SDC Article 20 [now Section 3.2.400] as permitted in the LMI District shall be permitted in the “Q”/Laura
Mixed-Use Sub-area, under LMI zoning, as follows:
a) Such CC uses shall be permitted on a maximum of 40% (14 acres) of the “Q”/Laura Mixed-Use
Sub-area;
b) Such CC uses shall not be permitted unless traffic and compatibility issues can be resolved in the
site plan review process. Traffic impact studies may be required; and
c) Such CC uses shall comply with CC parking, screening, setback, and other development
standards contained in SDC Article 18, Commercial Zoning Districts [now Section 3.2.300].
6.0 Eliminate plan/zone conflicts in the “Q”/Laura Street Sub-area.
6.1 Rezone the King Arthur subdivision to LMI and designate it as MU-LMI/CC on the Refinement Plan
Diagram.
6.2 Designate the KORE site (Assessor’s Map 17-03-27-10 tax lot #’ 4200 and Assessor’s Map 17-02-17-13
tax lot # 10900) MU-LMI/CC on the Refinement Plan Diagram.
7.0 Ensure that McKenzie-Gateway SLI Site development achieves a high level of aesthetics and amenity, consistent
with the intent of the Metro Plan SLI designation and with the “campus industrial” concept.
7.1 Through the conceptual development plan and site plan review processes, encourage an integrated
system of useable shared open spaces and recreational trails linking development areas to each other
and to the river.
7.2 Through site conceptual development plan and site plan review processes, encourage the separation of
bicycle and pedestrian paths from roadways wherever possible.
7.3 Through the conceptual development plan and site plan review processes, encourage the provision of on-
site passive and active recreational facilities.
7.4 Through the conceptual development plan and site plan review processes, encourage the use of site
design techniques to emphasize the site’s main access points; for example, additional setbacks,
additional landscaping designed to accentuate the entry, and monument signage identifying the site.
7.5 Encourage conceptual development plans to include recommendations or requirements for unified
planting themes and streetscapes along the internal collector system.
8.0 Provide for an efficient and flexible transportation system for the McKenzie-Gateway SLI Site.
Exhibit C, Page 11 of 33
Attachment 1 Page 79 of 169
GATEWAY REFINEMENT PLAN Natural Assets, Open Space/Scenic Areas, and Recreation Element
31
(a) Water-side protection (policy #2a)
(b) Public access (policy #4)
(c) Clean-up, restoration and education (policy #5)
(d) Stormwater planning (policy #6)
5.0 Willamalane shall continue to provide adequate parks and recreational facilities in the Refinement Plan area,
which are sensitive to natural assets and scenic values, and are of appropriate size and type for their surrounding
environments.
5.1 Willamalane shall work to improve the function and design of, and access to, Gamebird and Guy Lee
parks, and upgrade outdated and aging park facilities. Evaluation of the needs and timelines for
improvement projects at these parks shall be included in Willamalane’s facilities planning process.
5.2 In neighborhood and school parks (such as Gamebird and Guy Lee), Willamalane shall provide
opportunities for both active and passive recreation, including picnic areas, playgrounds, multi-use turf
areas, and unorganized sports facilities.
5.3 Where natural resource values are present in Willamalane parks, the District shall provide passive
recreation opportunities, such as trails, observation platforms, boardwalks, and educational/interpretive
facilities, in a manner consistent with the applicable adopted natural resources policies. These facilities
shall be approved under the site plan review process.
5.4 If natural assets in Willamalane parks/facilities have been disturbed, Willamalane shall initiate reclamation
and management plans.
5.5 Willamalane shall evaluate impacts of the sports facility orientation of Guy Lee Park, and explore option s
for modifying and improving the park to be more compatible with the neighborhood.
5.6 Willamalane shall work with School District 19 to explore the possibility of joint school/park development
with the School District-owned parcel to the South of Gamebird Park.
5.7 Willamalane shall consider acquisition of, and improvements to, Deadmond Ferry Landing in its facility
planning process, in order to increase its functionality and improve its ability to serve public recreation
needs.
5.8 Every effort should be made to provide incentives for achieving high quality design in future projects.
Examples of such incentives include offering tax concessions, density transfers, or other bonuses as
credits for setting aside and constructing pathways and greenways, natural storm water management
facilities, and other efforts to provide public amenities and sound land use practices.
6.0 Maintain and enhance the natural resource, recreational, and educational values associated with the Guy Lee
Ash copse and the adjacent SCS Channel #6.
6.1 Redesignate the publicly-owned land adjacent to SCS Channel #6 from Low Density Residential to Parks
and Open Space.1
6.2 The City shall encourage and support Willamalane and School District 19 in their efforts to develop a
demonstration wetland restoration/education project at the Guy Lee Ash copse (NRSS site S14)
6.3 The following policies shall be applied to the Guy Lee Ash copse (NRSS site S14) as recommended in
the NRSS (see GRP Tech. Supp., Appendix C):
(a) Watershed protection (policy #2a)
(b) Low impact recreation access (policy #4a)
1 Ordinance XXX changed the name of the plan designation from Parks and Open Space to Public Land and Open Space.
Exhibit C, Page 12 of 33
Attachment 1 Page 80 of 169
GLENWOOD
REFINEMENT
PLAN
November 1999
Exhibit C, Page 13 of 33
Attachment 1 Page 81 of 169
-6-
Design Recommendations are suggestions for public and private actions that would result in
better urban design in Glenwood.
Plan Implementation lists priorities for actions that will implement the plan. These
implementation priorities are recognized by the elected officials as the most important actions to
consider in carrying out the intent of the plan. This section also describes the plan amendment
processes.
The Glenwood Refinement Plan also includes an Appendix dated April 1989 printed under
separate cover. The Appendix contains background material used in developing the plan,
including materials from both issues sessions; history of zoning and annexation; Bancroft and
assessment practices; and detailed information on the planning team's discussions on the
vacation of 21st Avenue in the Phase I area.
VI. PLAN RELATIONSHIPS TO OTHER PLANS AND POLICIES
The Glenwood Refinement Plan is a refinement of the Eugene-Springfield Metropolitan Area
General Plan, adopted in 1982. This plan is the guiding document for public decisions affecting
the metropolitan area. Refinement plans must be consistent with the direction established by
the Metropolitan Plan. Any inconsistencies are addressed through amendments to the
Metropolitan Plan at the time of the refinement plan adoption.
COMPREHENSIVE PLANS
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range
comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and
Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning
area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan
amendment to establish a Springfield urban growth boundary and adopt a city-specific residential element
(chapter). The City has since added more elements to the Springfield Comprehensive Plan. The
Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-specific
goals, policies, and implementations strategies to inform land use decisions within the Springfield urban
growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield’s
applicable comprehensive plans.
Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific
comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly
supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information
about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield
Comprehensive Plan.
The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and
Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter II-G and
remove the plan designations shown on the Metro Plan Diagram for areas within Springfield’s urban
growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane
County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance
No. PA 1390 and Ordinance No. 23-07).The Springfield Comprehensive Plan Map includes the plan
designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan
Diagram reflecting amendments since the Refinement Plan’s original adoption and some minor plan
designation name changes is included prior to the Table of Contents in this document. The original
Refinement Plan Diagram is retained on page 20 for historical reference.
Exhibit C, Page 14 of 33
Attachment 1 Page 82 of 169
-7-
NEIGHBORHOOD REFINEMENT PLANS
Neighborhood refinement plans often have more specific policies than those in the comprehensive plans
due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or
restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield
City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall
policies and purposes of the Springfield Comprehensive Plan.
Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate
changes made through adoption of more recent plans. For example, adoption of Springfield’s
Transportation System Plan resulted in changes to the functional classification of some streets which were
not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan
generally prevails.
Exhibit C, Page 15 of 33
Attachment 1 Page 83 of 169
-12-
Figure 3
Number of Residential Units by Structure Type
- Duplex
H Manufactured Dwelling
in Park
- - Manufactured [Dwelling
“ on Lot
H Multi-Family
- Single Family
2/87
Source: Lane Council of Governments
There are 167 single-family residences in Glenwood. Of these, 42 percent are owner-occupied.
Eugene’s windshield survey conducted to determine general housing quality has indicated that
a majority (62 percent) of the residential structures in Glenwood are in need of major repair.
C. Industrial and Commercial Land Use
Over the past 30 years, industrial development has gradually become the single most
predominant form of development (14 percent) in Glenwood. In line with this industrial
orientation, a majority of Glenwood's total acreage (59 percent) and of Glenwood's vacant
acreage (65 percent) is designated in the Metropolitan Plan for light-medium industrial use.
Industrial park sites and freestanding industrial sites are available for development as well. A
majority of the land (68 percent) in Glenwood is also zoned for industrial use.
On the other hand, there is very little land developed (six percent), designated (eight percent),
or zoned (two percent) for retail commercial uses. These commercial uses are located mostly
along Franklin Boulevard.
About 116 acres of industrially zoned land in Glenwood is vacant. Of this total, a majority of
these parcels are five acres or less in size (There are 73 acres in 67 parcels). Conversely, there
are 43 acres in five parcels that are six acres or larger (See Figure 4 Page 13, Industrially
Zoned Undeveloped Area). These figures indicate that most of the industrial land in Glenwood
is best suited for small to mid-size industrial uses.
(20 Units)
Exhibit C, Page 16 of 33
Attachment 1 Page 84 of 169
-22-
1. This subarea shall be considered appropriate for low-density residential use.
2. The City shall act to maintain the viability of existing residential development,
including single-family homes and manufactured dwellings.
2.1 Adopt methods to allow for the replacement of existing manufactured dwellings or
placement of new manufactured dwellings on vacant lots.
2.2 Adopt methods to allow small-scale manufactured dwelling parks (3-10
manufactured dwellings) to remain.
3. Where appropriate, the City shall allow continuation of existing nonconforming
uses established under earlier Lane County zoning.
3.1 Recognize the granola-making business on the southwest corner Concord and 15th
Avenue as a non-conforming use.
3.2 Consider amending Article 5, the Springfield Development Code regulations
pertaining to pre-existing non-conforming use status and Articles 18 and 20,
Commercial and Industrial zoning districts.
4. The City shall support residential zoning that allows farm animals for
non-commercial purposes.
4.1 Retain LDR zoning upon annexation to the City.
SUBAREA 2. SOUTH 17TH AVENUE TRANSITIONAL AREA (Refer to the Plan diagram on
Page 20)
The South 17th Avenue Transitional area is a small residentially developed area consisting of
19 tax lots in nine acres. The area is developed with 17 houses, two manufactured dwellings,
and a logging supply business. Lane County originally zoned this area for, industrial use in
1955. In 1982, Lane County changed the zoning to RA Suburban Residential to conform to the
existing residential land use in the area. This area is e Metropolitan Plan designateds this area for
light-medium industrial use.
The area is currently bordered by industrial zoning on the south, west, and north sides and
partially on the east side. Most of the industrially zoned land is vacant, at this time.
POLICIES
1. This subarea shall be considered appropriate for eventual light-medium industrial
use.
2. The City shall allow for a gradual transition from residential to future industrial use.
2.1 Retain existing low-density residential zoning until individual property owner’s
request a change to light-medium industrial zoning.
Exhibit C, Page 17 of 33
Attachment 1 Page 85 of 169
-24-
Glenwood Boulevard is classified as an arterial street. It extends from Franklin Boulevard to 1 -5
with access to and from the freeway. A drainage slough forms the southern boundary of this
subarea. The slough is identified as a potentially regulated wetland area in a metropolitan -level
review of wetlands.
The primary land use pattern for this area should remain industria l in the future to accommodate
light manufacturing and/or distribution activities. The central location of this subarea in the
metropolitan area and the access to Franklin Boulevard and 1-5 via Glenwood Boulevard make
this location particularly well suited for distribution facilities.
While the primary designation for this area should be industrial, there are certain characteristics
peculiar to the area that indicate other options could also be appropriate. Development of LTD'S
facilities may ultimately generate some local demand for supporting commercial development.
The subarea's central location and access factors may also make the area attractive for an
independent retailer, such as a discount store. The intent here would be to accommodate a
single user or single development site that requires a relatively large land area, and to avoid the
creation of additional strip commercial through development of a multiplicity of small,
independent uses.
The subarea is designated in the Metropolitan Plan for light-medium industrial use.
POLICIES
1. This subarea shall be considered appropriate for:
- mixed-use for the northwest, southwest, and southeast corners of
Glenwood Boulevard and 17th Avenue.
- light-medium industrial for the rest of the subarea.
2. The City shall allow for the possibility of a locally oriented commercial site to serve
the developing needs of the area.
2.1 Permit rezoning of the approximately three acres in the southeastern quadrant of
the intersection to a Neighborhood Commercial district or other commercial district
that would provide for locally oriented uses.
3. The City shall allow for the possibility of a large single commercial use or
development site, such as a discount store.
3.1 Permit rezoning of a development site at the southwestern or northwestern corner
of the intersection to the Community Commercial district, provided the entire
ownership as it exists on the date of the refinement plan's adoption is included. Any
tract rezoned to a commercial district under this provision should not b e approved
for further land division.
i
SUBAREA 4. GLENWOOD INDUSTRIAL AREA (Refer to the Plan diagram on Page 20)
The Glenwood Industrial Area encompasses a large portion of Glenwood. It includes all portions
of Glenwood not within a specific subarea. The major portion of this subarea is in the interior of
Glenwood. Much of this area is vacant or underdeveloped and the rest of the area is developed
Exhibit C, Page 18 of 33
Attachment 1 Page 86 of 169
-25-
with a variety of industrial uses. The area includes such major industrial uses as P. W. Pipe
Company, United Parcel Service, and the Lane County Central Receiving Station for solid
waste.
The majority of the area was zoned M-2 Light Industrial by Lane County in 1955 with scattered
parcels zoned M-1 Limited Industrial at the same time. The area is still zoned for light-medium
industrial use. The most westerly portion of this area is already within the City.
In 1976 Lane County constructed a solid-waste facility in Glenwood. The Central Receiving
Station is a transfer site for solid waste from the metropolitan area. Solid waste is received and
deposited in the facility's pit where it is compacted and then trucked to the Short Mountain
landfill. The site also has a recycling station and a composting project for yard waste. Because
of the nature of the activity, the facility does affect surrounding areas in Glenwood. These
impacts range from litter generated by uncovered loads traveling through Glenwood to odors
from the pit itself.
This Subarea e Metropolitan Plan is designateds this Subarea for light-medium industrial use.
POLICIES
1. This subarea shall be considered appropriate for light*medium industrial use.
2. The City shall protect nearby residential development from the impact of industrial
expansion.
2.1 Use the Industrial Site Development Guidelines as criteria in reviewing development
proposals through the site plan review process.
3. The City shall consult with Lane County to reduce litter and odors from the solid
waste facility.
SUBAREA 5. GLENWOOD OPEN SPACE (Refer to the Plan diagram on Page 20)
This Subarea includes two separate geographic areas: 1) the Laurel Hill Cemetery on Judkins
Road; and 2) the area between I-5 and the railroad tracks in southeast Glenwood. Both areas
are presently designated for publicarks land and open space in the Metropolitan Plan.
The southeast Glenwood area is currently undeveloped and has steep terrain. It is an area that
Exhibit C, Page 19 of 33
Attachment 1 Page 87 of 169
-28-
regulations to take into account when reviewing development proposals within the Greenway.
Springfield has established a Greenway Setback Line along the Willamette River, both within
the city limits and the City’s urban transition area. The City will establish a Glenwood Greenway
Setback Line within one year of the adoption of this plan. The Willamette River Site
Development Guidelines beginning on Page 37 shall continue to apply until the Glenwood
Greenway Setback Line is established.
Because of the breadth and diversity of land uses and character of the corridor, this subarea is
broken into five smaller subareas: River Industrial, Franklin Commercial-Industrial Strip, River
Opportunity Area, McVay Mixed-Use Area, and South McVay Industrial. These subareas are
discussed below and have policies and implementation strategies specific to them.
SUBAREA 6. RIVER INDUSTRIAL (Refer to the Plan diagram on Page 20)
The River Industrial area includes all parcels between Franklin Boulevard and the Willamette
River from the I-5 bridge to the Jay Oldham storage yard. It also includes the first seven parcels
on the south side of Franklin Boulevard ending just west of Brooks Auto Parts.
The parcels on the north side of Franklin Boulevard have historically been used for major
industrial uses and the area is still predominantly industrial with such large well-established
uses as Myrmo's and Willamette Graystone. There are also smaller, more commercially
oriented uses on parcels fronting Franklin Boulevard such as car dealerships and paw n shops.
The majority of the parcels on the south side of Franklin Boulevard are vacant and under one
ownership. One parcel has two houses. All of these parcels back up to the Lane County Solid
Waste Facility on the south.
Because these parcels are vacant and have frontage on Franklin Boulevard, the site may also
be desirable for commercial use. The intent here would be to accommodate a single large user
rather than a proliferation of smaller commercial uses so that strip commercial would not be
extended on Franklin Boulevard.
The River Industrial area is designated for light-medium industrial use in the Metropolitan Plan.
POLICIES
1. This subarea shall be considered appropriate for:
- mixed use for the parcels on the south side of Franklin Boulevard;
- light-medium industrial for the rest of the subarea.
2. The City shall recognize existing commercial development.
2.1 Allow for continued commercial use of smaller parcels with frontage on the north
side of Franklin Boulevard and a shallow lot depth by allowing C ommunity
Commercial zone changes.
3. The City shall recognize the possibility of commercial development on the south
side of Franklin Boulevard.
3.1 Allow rezoning of parcels on the south side of Franklin Boulevard to the Community
Commercial district, provided the entire ownership as it exists on the date of the
Exhibit C, Page 20 of 33
Attachment 1 Page 88 of 169
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SUBAREA 7. FRANKLIN BOULEVARD COMMERCIAL- INDUSTRIAL STRIP (Refer to the
Plan diagram on Page 20)
The Franklin Boulevard Commercial-Industrial Strip is located along the south side of Franklin
Boulevard and it extends east from Brooks Auto Parts to the railroad overpass. Although most
of the strip has industrial zoning, many of the uses are commercial in nature (such as the
Glenwood Market) or commercially oriented industrial uses (such as Case Equipment). The
area also includes scattered residential uses.
In some cases this area extends more than a block south of Franklin Boulevard in recognition of
existing industrial development patterns. This is particularly true on the east side of Brooklyn
Street, which is currently developed with a mixture of industrial and residential uses, including
houses, a church, a warehouse, and a truck repair business.
The Franklin Boulevard Commercial-Industrial Strip, except for the east side of Brooklyn Street,
is designated for commercial use in the Metropolitan Plan. The east side of Brooklyn Street is
designated for light-medium industrial use.
POLICIES
1. This subarea shall be considered appropriate for mixed commercial-industrial use.
2. The City shall allow a mix of zoning districts in order to reflect the combination of
land uses in the subarea.
2.1 Allow Community Commercial zoning (parcels may retain Light-Medium Industrial
zoning).
2.2 Allow residential uses to retain Low Density Residential zoning.
Exhibit C, Page 21 of 33
Attachment 1 Page 89 of 169
-33-
with a total of 80 manufactured dwellings and 49 RV spaces on 15 acres on the west side of the
McVay Highway. It also includes some commercial and industrial uses oriented to the McVay
Highway near 20th Avenue and houses scattered throughout the area, especially along 20th
Avenue. This area also includes a large vacant parcel which fronts on the river and James Park,
a neighborhood park located off 19th Avenue owned and operated by the Willamalane Park and
Recreation District. The Parks and Recreation section of the Public Facilities and Services
Element discusses James Park and explores the possibility of creating a park on the river side
of McVay Highway.
All of the mobile home parks in Glenwood allow overnight RV usage. The Springfield
Development Code currently allows RV parks only within the Community Commercial district.
Overnight RV usage within parks is only allowed under certain conditions in certain parts of the
City.
The manufactured dwelling parks on the west side of McVay are generally older than the ones
on the east side and will probably be redeveloped within the next 15 years. While the
manufactured dwelling parks on the west side of McVay are currently designated for low-density
residential use, in the long term this area will probably he redeveloped for industrial use. This
change would require a plan amendment.
Most of the parcels on the river side of the McVay Highway are within the Willamette River flood
hazard area, either within the floodway itself or in the 100-year floodplain. New development
within the floodway is extremely restricted. Replacement of existing manufactured dwellings
within the flood hazard area is currently allowed.
The Metropolitan Plan designates Ppart of the area along the McVay Highway is designated for commercial
use, while designating the areas of the existing manufactured dwelling parks on both sides of
McVay are designated for low-density residential use and the rest of the area for light-medium industrial use.
POLICIES
1.This subarea shall be considered appropriate for:
-mixed use for parks, office and industrial parks and medium-density
residential use on the east side of the McVay Highway;
-low-density residential use for the two manufactured dwelling parks on the
west side of McVay Highway;
-commercial use in the vicinity of 20th Avenue;
-park use for James Park and the old Glenwood school site; and
-light-medium industrial for the remainder of the subarea.
2.The City shall allow for appropriate zoning reflecting the land use designations
within this subarea.
2.1 Allow for a mixture of zoning districts that would allow parks, office and industrial
parks, and medium-density residential use.
2.2 Allow manufactured dwelling parks to have Low Density Residential zoning.
Exhibit C, Page 22 of 33
Attachment 1 Page 90 of 169
-34-
2.3 Allow Neighborhood Commercial or Community Commercial zoning within the
commercially designated area.
3. The City shall consider this area as appropriate for RV use.
3.1 Continue to allow RVs to replace RVs and manufactured dwellings in existing
manufactured dwelling parks that contain RVs.
4. The City shall defer to Willamalane to consider the potential for future park
development within the area adjacent to the Willamette River.
Refer to the Franklin Boulevard/Willamette River Corridor policies on Page 27 for additional
policy direction.
SUBAREA 10. SOUTH MCVAY INDUSTRIAL (Refer to the Plan diagram on Page 20)
This area is located on both sides of the southern portion of the McVay Highway as it exits the
Glenwood area. While existing uses are mostly industrial in nature, the opportunity exists for
office or industrial park development that takes advantage of the riverfront location.
The South McVay Industrial area is designated for light -medium industrial use in the
Metropolitan Plan.
POLICIES
1. This subarea shall be considered appropriate for light-medium industrial use.
Exhibit C, Page 23 of 33
Attachment 1 Page 91 of 169
refinement plan
glenwood
Adopted 2012, Acknowledged 2014, Amended 2014
Exhibit C, Page 24 of 33
Attachment 1 Page 92 of 169
Introduction• 7
Introduction
Plan Purpose & Relationship to Other Plans
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the overarching land use policy
document that guides land use decision making in Springfield, Eugene, and unincorporated areas within
the Metro Plan boundary. Following the passage of House Bill 3337 in 2007 directing Eugene and
Springfield to establish separate Urban Growth Boundaries, each city developed community-focused
refinement plans to provide more explicit application of Metro Plan policies and to provide site-specific
determination of Metro Plan land use plan designations.
The Glenwood Refinement Plan (GRP) is one of several neighborhood-specific refinement plans that
further refine and augment the Metro Plan and the community-focused refinement plans. They provides
the opportunity to examine, in greater detail, a neighborhood-specific geographic area’s future housing
and economic development opportunities; open space, cultural resource protection, public facilities,
and transportation needs; and to resolve potential conflicts between adjoining land uses. The GRP is
thus intended to provide background information and policy direction for public and private decisions
affecting the growth and development of the Glenwood area. The GRP guides the provision of public
services; serves as a basis for evaluating private development proposals; and provides a common
framework for those engaged in the conservation, development, and redevelopment of Glenwood.
The GRP is intended to be a living document that is reviewed for continued applicability of policies and
strategies approximately every five years.
Implementation of GRP policies is enabled through Springfield Development Code ordinances and
other municipal rules and regulations, such as those detailed in Springfield’s Engineering Design
Standards and Procedures Manual, Springfield Standard Construction Specifications, and Springfield’s
Conceptual Local Street Map.
Plan Relationships
COMPREHENSIVE PLANS
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range
comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene,
and Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan
planning area. In 2011, Springfield began to create its own Comprehensive Plan, which started with
a Metro Plan amendment to establish a Springfield urban growth boundary and adopt a city-specific
residential element (chapter). The City has since added more elements to the Springfield Comprehensive
Exhibit C, Page 25 of 33
Attachment 1 Page 93 of 169
8 • Glenwood Refinement Plan
Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes
city-specific goals, policies, and implementations strategies to inform land use decisions within the
Springfield urban growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan
serve as Springfield’s applicable comprehensive plans.
Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific
comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly
supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information
about how the different elements of the Metro Plan apply to Springfield, see the Preface of the
Springfield Comprehensive Plan.
The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and
Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter
II-G and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield’s
urban growth boundary. The Springfield Comprehensive Plan Map includes the plan designations from
adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting
amendments since the Refinement Plan’s original adoption and some minor plan designation name
changes is included prior to the Table of Contents in this document. The original Refinement Plan
Diagram is retained in Figure 2 for historical reference.
NEIGHBORHOOD REFINEMENT PLANS
Neighborhood refinement plans often have more specific policies than those in the comprehensive
plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more
specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies,
the Springfield City Council has the authority to interpret the provision that prevails, to give maximum
effect to the overall policies and purposes of the Springfield Comprehensive Plan.
Some neighborhood refinement plans, created decades ago, have not been fully updated to
incorporate changes made through adoption of more recent plans. For example, adoption of
Springfield’s Transportation System Plan resulted in changes to the functional classification of some
streets which were not incorporated into the Neighborhood Refinement Plans. In such cases, the more
recently adopted plan generally prevails.
Area Location & Context
Glenwood is located in the southwest corner of Springfield, adjacent to Eugene. The Willamette River
bounds Glenwood on the north and east, with Interstate-5 (I-5) on the south and west. Glenwood
is approximately 684 acres (one square mile) in size and, as of the 2010 Census, was home to
Exhibit C, Page 26 of 33
Attachment 1 Page 94 of 169
28 • Glenwood Refinement Plan
• Pedestrian and Bicycle Facilities – The ability for workers to access amenities and support
services 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. This Plan provides policy direction for improved bicycle and pedestrian
facilities in the Glenwood Riverfront.
• Labor Force – Employers want to be assured of an adequate labor pool with the skills and
qualities most attractive to that industry. Commuting patterns within the city suggest that businesses
in Springfield have access to the workforce of the entire Eugene-Springfield region.
• Amenities – According to the International Economic Development Council, attracting and
retaining skilled workers requires that firms seek places offering a high quality of life that is vibrant
and exciting for a wide range of people and lifestyles. This Plan provides policy direction for
improved open space and other urban amenities.
• Fiber Optics and Telecommunications – Most industries expect access to multiple phone lines, a
full range of telecommunication services, and high-speed internet communications. The Glenwood
Riverfront has access to high-speed telecommunication facilities.
• Potable Water – The demand for potable water and water for fire suppression systems varies
widely. This Plan provides policy direction to ensure current and planned water facilities in the
Glenwood Riverfront will be sufficient to meet current and expected needs.
• Power Requirements – The demand for electricity also varies widely. This Plan provides policy
direction to ensure current and planned electric facilities in the Glenwood Riverfront will be sufficient
to meet current and expected needs.
• Land Use Buffers – According to public officials and developers/brokers, industrial areas
have operational characteristics that do not blend as well with residential land uses as they do with
office and commercial uses. Selected commercial office, retail, lodging, and mixed use activities are
becoming acceptable adjacent to light manufacturing uses. This Plan includes policy direction to
designate adjacent uses that are compatible in the Glenwood Riverfront.
Nodal Development
Certain neighborhood design patterns are sometimes referred to as ‘nodes’ in the Eugene-Springfield
metropolitan area. The nodal concept was accepted by the Oregon Department of Land Conservation
and Development as a measure for the region to reduce vehicle miles traveled in compliance
with the Oregon Transportation Planning Rule in 2001. As described in the Metro Springfield
Exhibit C, Page 27 of 33
Attachment 1 Page 95 of 169
Land Use and Built Form• 29
Comprehensive Plan, the nodal designation prescribes development in a mixed-use, pedestrian-
friendly land use pattern that seeks to increase concentrations of population and employment along
major transportation corridors with a mix of diverse and compatible land uses and public and private
improvements designed to be pedestrian- and transit-oriented. This designation in the Metro Springfield
Comprehensive Plan lists the fundamental characteristics of nodal development as follows:
• Design elements that support pedestrian environments and encourage transit use, walking, and
bicycling;
• A transit stop that is within walking distance (generally ¼ mile) from anywhere in the node;
• Mixed uses providing services within that walking distance;
• Public spaces (such as parks, public and private open space) and public facilities, that can be
reached without driving; and
• A mix of housing types and residential densities that achieve an overall net density of at least
12 units per acre.
The 2002 TransPlan identified more than 50 sites throughout the Eugene-Springfield metropolitan
area that were considered to have the potential for this type of land use pattern, including a portion
of the Glenwood Riverfront paralleling Franklin Boulevard. Implementation of the 2005 Glenwood
Riverfront Specific Area Plan included putting the nodal development strategy into action by applying
the Metro Plan’s Nodal Designation to the approximately 50-acre Glenwood Riverfront Plan District
boundary, as depicted in Figure 1. Implementation Action 2.4 in the Springfield 2030 Refinement Plan
Residential Land Use and Housing Element calls for Springfield to increase opportunities for mixed-use
nodal development, including considering expansion of the Glenwood node through the Glenwood
Refinement Plan Update process. This Plan contains objectives, policies, and implementation strategies,
as described later in the Land Use Chapter, that include direction for meeting this implementation
strategy in the Glenwood Riverfront.
Land Use Framework
The land use framework established for Glenwood Phase I identifies the location, mix, and type of
essential uses deliberately selected to maximize the value of the area’s proximity to the Willamette River,
major transportation corridors, the University of Oregon, and its strategic location between Eugene and
downtown Springfield. The land use framework also considers likely development and redevelopment
constraints. It is intended to foster regional market growth and provide options for living, working,
shopping, service, and hospitality environments by guiding the types and forms of future development
Exhibit C, Page 28 of 33
Attachment 1 Page 96 of 169
30 • Glenwood Refinement Plan
and redevelopment in the Glenwood Riverfront
that will, in turn, complement redevelopment in
downtown Springfield.
The land use framework for Glenwood Phase
I establishes a mix of commercial, office, and
industrial uses that support the creation of jobs
and visitor opportunities in close proximity
to a residential mixed-use area that provides
distinct housing choices. The identified uses in
the Glenwood Riverfront will complement and
enhance Willamette Greenway principles and will
be integrated with public amenities, such as park
blocks, to increase overall land values between
the riverfront and Franklin Boulevard/McVay
Highway.
Land Use Designations, Zoning &
Subareas
Designations
The Glenwood Phase I plan designation map
refines the Metro Plan Diagram to illustrates a
broad allocation of projected land use needs in
the Glenwood Riverfront (as depicted in Figure 2)
and the objectives, policies, and implementation
strategies embodied in the text of the Glenwood
Phase I Refinement Plan, all of which conform to
the plan designations and policies of the Metro
Plan applicable Springfield comprehensive plans.
The Plan designations established within the
Glenwood Riverfront are as follows2:
• Residential Mixed-Use is established
where the intended primary use is high-
density residential. However, to increase the
development of housing opportunities in close
Phase 1: Sub-Areas
McVay Riverfront
Franklin Riverfront
Glenwood Riverfront
Previous Plan Sub-area 8
(“River Opportunity Area”)
Figure 1
Figure 1
Exhibit C, Page 29 of 33
Attachment 1 Page 97 of 169
Land Use and Built Form• 31
proximity to supporting commercial or civic uses needed by residents, limited small scale retail,
office, service, and educational uses are permitted if developed as an integral part of the residential
development.
• Commercial Mixed-Use is established where the intended primary use is commercial and office
employment, but where flexibility is provided for high-density residential to be permitted either in stand-
alone buildings or integrated with the primary commercial use.
• Office Mixed-Use is established where office employment uses, including employment-
generating educational facilities, are intended as the primary uses. To provide commercial services
needed by office users near their workplace, limited small scale retail and service uses are permitted
if developed as an integral part of the office development. Additional flexibility is provided
under this designation to allow for limited other uses that are compatible with the primary office
employment uses, such as commercial hospitality services, civic uses, and high density residential
housing affiliated with permitted educational facilities.
• Employment Mixed-Use is established where office employment, educational uses and light
manufacturing employment uses are intended as the primary uses with external impacts less than or
equal to office uses. Limited small scale retail and service uses are also permitted if developed as
an integral part of the primary employment development to provide commercial services needed by
employees in close proximity to their workplace (employment-generating educational uses may be
considered primary uses). Warehousing is permitted as a secondary use.
• Nodal Development Area is established where land designated in one of the aforementioned
categories also meet the fundamental characteristics of a node as defined in the Metro Springfield
Comprehensive Plan: Design elements that support pedestrian environments and encourage transit
use, walking, and bicycling; a transit stop that is within walking distance (generally ¼ mile) from
anywhere in the node; mixed uses providing services within walking distance; public spaces (such
as parks, public and private open space), and public facilities, that can be reached without driving;
and a mix of housing types and residential densities that achieve an overall net density of at least 12
units per acre.
• The Multimodal Mixed-use Area (MMA) is established where the local government determines
that there is and/or is planned to be: high-quality connectivity to and within the area by modes of
transportation other than the automobile; a denser level of development of a variety of commercial
and residential uses than in surrounding areas; a desire to encourage these characteristics through
development standards; and an understanding that increased automobile congestion within and
around the MMA is accepted as a potential trade-off.
Exhibit C, Page 30 of 33
Attachment 1 Page 98 of 169
Land Use and Built Form• 35
from previously prepared materials) of finished products or parts, including processing, fabrication,
assembly, treatment, testing, or packaging of these products. Emphasis is placed on uses that
are not potentially dangerous or environmentally incompatible with office employment uses, i.e.
not generating air pollution, hazardous waste, or excessive noise. These uses typically generate
limited/light freight traffic, and all manufacturing and storage of materials and company vehicles
are obscured from public view. Examples include, but are not limited to: manufacture of electronic
instruments; specialty food processing; pharmaceutical manufacturing; research and scientific
laboratories; and businesses that recycle manufactured materials for sale to the public.
Glenwood Phase I calls for re-designating and re-zoning all parcels in the Glenwood Riverfront
contemporaneously with the adoption of Glenwood Phase 1. However, if these changes cause existing
uses to not conform to the new zoning district or plan designations, the buildings or structures housing
such non-conforming uses may continue, expand, or be modified as permitted under the Springfield
Development Code regulations governing pre-existing non-conforming uses until they are abandoned
or redeveloped.
Subareas
Subarea A
Subarea A includes just over 33 acres of land in the core of the Franklin Riverfront and is bounded on
the north by the Willamette River, on the south by Franklin Boulevard, on the west by a future northerly
extension of Henderson Avenue, and on the east by a future northerly extension of McVay Highway.
Public infrastructure, as well as the required 75-foot Willamette River riparian/Greenway setback,
reduce the developable acreage of Subarea A by 32.5% (13.9% streets, 10.5% neighborhood park
blocks, 8.1% riparian setback and riverfront linear park). This figure conforms to the approximately
32% of residentially-designated land made available by the Metro Springfield Comprehensive Plan for
auxiliary uses, such as streets, neighborhood parks, and other public facilities.
Subarea A is intended for the development of an urban high-density residential mixed-use
neighborhood to:
• capitalize on the proximity of transit stations serving a high frequency transit corridor and
existing and future job centers;
• take advantage of riverfront views and unique development opportunities;
• provide additional housing choices for area residents;
• support the high level of public investment in infrastructure that has occurred or is planned in the
Franklin Riverfront; and
Exhibit C, Page 31 of 33
Attachment 1 Page 99 of 169
Land Use and Built Form• 41
employment building. Secondary warehousing and distribution functions associated with primary light
manufacturing uses are also allowed. However, similar to Subarea C above, uses such as child care,
indoor recreation centers, cafeterias, restaurants, or other contracted services for the benefit of office
employees (and that do not generally serve the public) are considered accessory uses and may be
located anywhere within primary use structures.
Within Subarea D, Assessor’s Maps and Tax Lots 18-03-03-11-01401, 17-03-34-44-03300, and 17-
03-34-44-00301 allow the primary and secondary uses associated with the Commercial Mixed-Use
designation.
Objective:
Implement land use and transportation-related land use policies found in the Metro Plan, TransPlan
(and/or Springfield Transportation System Plan), and the Springfield 2030 Refinement Plan to
support pedestrian-friendly, mixed-use development in the Glenwood Riverfront.
Policies & Implementation Strategies:
• Designate and zone land that meets the fundamental characteristics of the Mixed Use and
Nodal Development Area designations, as defined in the MetroSpringfield Comprehensive Plan,
and Multimodal Mixed-Use Areas (MMA), as defined in OAR 660-012-0060.
°Maintain and expand the existing nodal designation boundary to include land on both sides of
Franklin Boulevard from the I-5 Bridges to the Springfield Bridges, and on both sides of McVay
Highway between the Springfield Bridges and an area just south of the railroad trestle, as depicted
in Figure 2.
°Designate and zone land north of Franklin Boulevard in between the northern extension of
Henderson Avenue and the northern extension of McVay Highway as Residential Mixed-Use, as
depicted in Figure 2.
°Designate and zone land north of Franklin Boulevard in between the northern extension of McVay
Highway and the Springfield Bridges as Commercial Mixed-Use, as well as Assessor’s Maps and
Tax Lots 18-03-03-11-01401, 17-03-34-44-03300, and 17-03-34-44-00301, as depicted in
Figure 2.
°Designate and zone land on both sides of Franklin Boulevard from the I-5 Bridges to South
Brooklyn Avenue as Office Mixed Use, as depicted in Figure 2.
°Designate and zone land on both sides of McVay Highway from the Springfield Bridges to the
southern terminus of Springfield’s Urban Growth Boundary as Employment Mixed-Use except for
Exhibit C, Page 32 of 33
Attachment 1 Page 100 of 169
Housing and Economic Development• 95
Housing and Economic Development
Introduction
Housing
Statewide Planning Goal 10, Housing, requires Springfield to provide an adequate land base to
accommodate a full range of choice in housing type, density, cost, and location throughout the City to
meet the community’s housing needs. Springfield has historically addressed this requirement through its
residential land use designations which are updated periodically through the Metro Plan. In 2007, the
Oregon Legislature passed House Bill 3337, which required Eugene and Springfield to establish separate
UGBs that included separate 20 year residential lands inventories for each city. In response to House
Bill 3337, Springfield conducted a study to determine the City’s housing needs for 2010-2030 and to
evaluate the sufficiency of land available for residential uses within Springfield’s UGB. The adopted
study, the Springfield Residential Land and Housing Needs Analysis (RLHNA) is the basis upon which the
adopted Springfield 2030 Residential Land Use and Housing Element were developed.
As described in the Land Use Chapter, the adopted Springfield RLHNA identified a deficit of 28 gross
acres for high-density residential uses and associated public/semi-public land intended to provide
public open space for the higher density development, as well as any needed supporting public
facilities. To address this deficit, Implementation Action 2.1 in the Springfield 2030 Residential Land
Use and Housing Element directs the City Council to re-designate at least 28 additional gross buildable
acres as part of Glenwood Phase I (seven acres of which are intended to provide public open space
for the higher density development, as well as any needed supporting public facilities). Implementation
Action 2.2 directs Springfield to support development of additional high-density residential uses
adjacent to commercial and employment areas. The Land Use Chapter therefore directs the designation
of 33.26 gross acres with a minimum density of 50 net dwelling units per acre in the Glenwood
Riverfront as Residential Mixed-Use to provide housing choice for Springfield residents and ensure that
Springfield’s high-density housing needs can be met through annexation and redevelopment, consistent
with the City’s adopted housing policies. The Housing Section of this Chapter contains additional
policies intended to: enhance the progress of high-density residential development; facilitate the
development of a neighborhood where residents from a range of economic levels, household sizes,
and ages can choose to live; address the impact of redevelopment on existing manufactured home
park residents; ensure existing housing meets current Building, Fire, and Health codes; and support the
preservation, rehabilitation, and maintenance of existing housingover the Plan period.
Exhibit C, Page 33 of 33
Attachment 1 Page 101 of 169
Exhibit D
Neighborhood Refinement Plan Amendments for Springfield-only
adoption
East Main Refinement Plan:
•Replace the Public/Semi-Public designation with a Public Land and Open Space
designation, as shown on the Refinement Plan Diagrams in Exhibit A
•Replace the Parks and Open Space designation with a Public Land and Open Space
designation, as shown in track changes on the following pages
•Replace reference to the Metro Plan Diagram with reference to the Springfield
Comprehensive Plan Map and replace reference to Metro Plan text with reference to
the Springfield Comprehensive Plan, as shown in track changes on the following pages
•Add text referencing the Springfield Comprehensive Plan to make the distinction
between the Metro Plan and/or relationship to refinement plans, as shown in track
changes on the following pages
Mid-Springfield Refinement Plan:
•Replace the Parks and Open Space designation with a Public Land and Open Space
designation, as shown on the Refinement Plan Diagrams in Exhibit A
•Remove reference to the Metro Plan Diagram or replace with reference to the
Springfield Comprehensive Plan Map, as shown in track changes on the following pages
•Replace reference to the Metro Plan text with reference to the Springfield
Comprehensive Plan, as shown in track changes on the following pages
•Add text referencing the Springfield Comprehensive Plan to make the distinction
between the Metro Plan and/or relationship to refinement plans, as shown in track
changes on the following pages
Q Street Refinement Plan:
•Replace the Public/Semi-Public designation with a Public Land and Open Space
designation, as shown on the Refinement Plan Diagrams in Exhibit A
•Add text referencing the Springfield Comprehensive Plan to make the distinction
between the Metro Plan and/or relationship to refinement plans, as shown in track
changes on the following pages
Exhibit D, Page 1 of 26
Attachment 1 Page 102 of 169
EAST MAIN REFINEMENT PLAN
(Interim Printing June 2023)
Prepared by:
Development and Public Works Department
City of Springfield
ADOPTION DATES:
City of Springfield – April 4, 1988
Lane County – June 22, 1988
City of Eugene (Metro Plan Amendments Only) – April 25, 1988
TEXT AMENDMENT DATES:
January 21, 2020
DIAGRAM AMENDMENT DATES:
June 5, 1989
March 15, 1993
November 15, 1993
October 7, 2002
July 7, 2003
July 16, 2007
Exhibit D, Page 2 of 26
Attachment 1 Page 103 of 169
TABLE OF CONTENTS
INTRODUCTION ..................................................................................................2
FINDINGS …………………………………………………………………………………………..…………. 23
ELEMENTS: CRITERIA, GOALS & POLICIES
RESIDENTIAL ELEMENT …………………………………………………………………………………….110
MIXED-USE ELEMENT ……………………………………………………………………………………….143
COMMERCIAL ELEMENT ……………………………………………………………………………………165
INDUSTRIAL ELEMENT ……………………………………………………………………………………. 176
PUBLIC FACILITIES ELEMENT ……………………………………..…………………………..………….187
ENVIRONEMENTAL DESIGN & RECREATION ELEMENT ……………………………………………2019
ENVIRONMENTAL DESIGN ………………………………………………………………………… 2019
RECREATION ………………………………………………………………………………………… 2019
ACCESS, CIRCULATION & PARKING ELEMENT ……………………………………………………...232
TRANSIT ………………………………………………………………………………………………… 232
BICYCLE ………………………………………………………………………………………………… 243
PLAN IMPLEMENTATION ELEMENT ……………………………………………………………………...254
GLOSSARY …………………………………………………………………………………………………. 276
LIST OF MAPS
AMENITIES & PUBLIC FACILITIES..................................................................................................... 1
PLAN DIAGRAM ……………………………………………………………………………………………… 28
LARGE VACANT AREAS ................................................................................................................... 29
DEVELOPMENT CONSTRAINTS ……………………………………………………………………….…. 30
CITY OF SPRINGFIELD SANITARY SEWER SYSTEMS ………………………………………………. 31
NEIGHBORHOOD PARK SERVICE AREAS …………………………………………………………...... 32
STREET CONDITIONS ………………………………………………………………………………...…… 33
PROPOSED STORM SEWER IMPROVEMENTS ……………………………………………….………. 34
APPENDIX
REFERENCES TO POLICIES OF THE METRO PLAN 1987 UPDATE…………................................. i
Exhibit D, Page 3 of 26
Attachment 1 Page 104 of 169
EAST MAIN REFINEMENT PLAN FINDINGS
2
INTRODUCTION
PURPOSE
The East Main Refinement Plan guides local development and decisions with land use policies addressing
this area’s specific issues and needs. The application of site-specific plan designations is based on findings
of fact and clear criteria. Refinement Plan designations, policies, and implementation actions are designed to
minimize the negative impacts of development on existing residential neighborhoods and natural resources,
while facilitating development consistent with applicable comprehensive plans.
PLAN RELATIONSHIPS
COMPREHENSIVE PLANS
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range
comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and Lane
County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning area. In
2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan amendment
to establish a Springfield urban growth boundary and adopt a city-specific residential element (chapter). The
City has since added more elements to the Springfield Comprehensive Plan. The Springfield Comprehensive
Plan is the local long-range comprehensive plan that establishes city-specific goals, policies, and
implementations strategies to inform land use decisions within the Springfield urban growth boundary.
Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield’s applicable
comprehensive plans.
Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific
comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly
supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information
about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield
Comprehensive Plan.
The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield
Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter II-G and remove the
plan designations shown on the Metro Plan Diagram for areas within Springfield’s urban growth boundary.
These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of
Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and
Ordinance No. 23-07).The Springfield Comprehensive Plan Map includes the plan designations from adopted
Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting amendments
since the Refinement Plan’s original adoption and some minor plan designation name changes is included
prior to the Table of Contents in this document. The original Refinement Plan Diagram is retained on page 28
for historical reference.
NEIGHBORHOOD REFINEMENT PLANS
Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due
to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or
restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City
Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies
and purposes of the Springfield Comprehensive Plan.
Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate
changes made through adoption of more recent plans. For example, adoption of Springfield’s Transportation
System Plan resulted in changes to the functional classification of some streets which were not incorporated
into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally prevails.
Exhibit D, Page 4 of 26
Attachment 1 Page 105 of 169
EAST MAIN REFINEMENT PLAN FINDINGS
3
FINDINGS
RESIDENTIAL
1) Many Medium and High Density Residential developments in the East Main area front on and take their
access from Main Street. Many of these developments are not acoustically designed to reduce noise
from Main Street.
2) Residents in the area have complained to the City of truck drivers bringing fully loaded trucks onto local
streets.
3) Compact Medium and High Density Residential development along major streets is conducive to
improved transit ridership and the viability of adjacent commercial developments.
4) The Metro Plan encourages the location of Medium and High Density Residential within ½ mile of existing
or future employment centers (Metro Plan, page III-F-5, policy #2).
A large portion of the East Main area is within ½ mile of the Weyerhaeuser Springfield Operation,
Springfield’s largest employer.
5) The Metro Plan encourages the location of higher density residential uses near existing or future
commercial centers (Metro Plan, page III-A-7, policy #30).
There are two large commercial nodes in the East Main area: 42nd and Main Street, and 57th and
Main Street.
6) Conflict between property owners may occur where there is an absence of adequate visual and acoustic
buffering between commercial/industrial uses and residential uses. In the East Main Area there are very
few cases where visual or acoustic buffering between commercial/industrial uses and residential uses
have been employed.
7) Older mobile home parks are generally developed at a higher density than surrounding Low Density
Residential areas due to the use of single wide manufactured homes and the less restrictive standards at
the time the parks were built.
8) There is an area of approximately 90 acres south and west of the Weyerhaeuser Logging Road, which is
vacant residential land (see Area #1, on the Refinement Plan Diagram).
9) The tree covered ridgeline in Area #1 is visible from Main Street and serves as an attractive setting for
residential development.
10) There is a pond located in Area #1 of the Refinement Plan Diagram. It is not identified in the Metro Plan
wetland inventory. As a potential wetland this site will be inventoried during the Metro Plan Update
process to determine its significance.
11) A portion of a lot located north of the proposed Daisy Street Connector and west of the Weyerhaeuser
Logging Road (see Development Constraints map) has poor access.
12) Along Main Street, in the area east of 49th Street, Medium and High Density Residential uses
predominate and are interspersed with neighborhood oriented commercial uses and some community
commercial uses. Strip commercial activity has not completely taken over this area.
Exhibit D, Page 5 of 26
Attachment 1 Page 106 of 169
EAST MAIN REFINEMENT PLAN FINDINGS
4
13) Rental vacancy rates are decreasing and rents are rising creating a market for new rental housing
construction.
14) Siting high density housing is difficult considering the fact that the majority of the areas where high
density housing is most appropriate, near the downtown areas and close to areas of employment of
shopping areas, has little vacant land. For the reasons mentioned above, it is important to preserve
vacant areas which are designated for medium and high density residential use on the Metro Plan
Diagram.
MIXED-USE
1) The area between 43rd and 49th Streets along Main Street has a mix of High and Medium Density
Residential, Neighborhood and Community Commercial, and one Light-Medium Industrial (LMI) use.
2) Much of the area fronting on Main Street, in the East Main area, wais designated Medium Density
Residential/Mixed-Use on the Metro Plan Diagram.1
3) There is little direction given in the Metro Plan on implementation of the Mixed-Use designation.2
4) There is a need to provide buffering between residential and commercial industrial uses within the Mixed-
Use areas along Main Street.
5) Generally, larger mixed-use developments are more able to make efficient, attractive, and safe use of the
land than smaller developments.
6) Where compatibility issues are adequately addressed, it may be desirable to maintain a mix of uses.
7) There are two large, vacant parcels 9 and 25 acres in size) within Mixed-Use Area #2 on the Refinement
Plan Diagram.
8) The Springfield Development Code, as amended on November 17, 1987, allows Medium and High
Density Residential uses in the Community Commercial zoning District within areas designated Mixed-
Use on the Refinement Plan Diagram.
COMMERCIAL
1) There is virtually no visual buffering between commercial and industrial uses in the East Main area.
2) There is little direction given in the Metro Plan on the implementation of the Mixed-Use designation.3
3) There are two shopping centers within the East Main area, with mixed commercial, industrial and
residential between the two centers.
INDUSTRIAL
1 The designations shown on the Springfield Comprehensive Plan Map are based on the adopted refinement plan designations. The Metro
Plan Diagram no longer includes plan designations for areas within Springfield’s urban growth boundary (UGB).
2 These findings supported the refinement plan adoption and have not been updated to reflect that the Land Use Element of the Springfield
Comprehensive Plan Map replaces the Metro Plan Diagram Chapter II-G for areas with Springfield’s UGB, which includes the Mixed-Use
designation description.
3 IBID.
Exhibit D, Page 6 of 26
Attachment 1 Page 107 of 169
EAST MAIN REFINEMENT PLAN RESIDENTIAL ELEMENT
11
RESIDENTIAL ELEMENT
The residential section of this Refinement Plan examines the housing needs of the Springfield/Eugene Metro
area and how they relate to the East Main area. The trend since the 1970’s has been an increasing
percentage of multi-family units in comparison with single-family units. Commercial development pressure
for Main Street frontage threatens the availability of land designated for Medium and High Density
Residential uses. In order to provide for the full variety of Springfield’s future housing needs, it is necessary
to maintain the supply of residentially designated land while recognizing the need to provide services to the
surrounding neighborhoods.
Because the East Main area is so close to Weyerhaeuser a great opportunity exists to provide a variety of
housing options close to Springfield’s largest employer. The Springfield Comprehensive Plan Map Metro
Plan Diagram shows a full range of residentially designated land within the East Main area, including: Single-
Family, Medium Density, and High Density Residential.
The area shown as Low Density Area #1 on the Refinement Plan Diagram is largely undeveloped and still in
large parcels. Area #1 is bisected by a tree covered ridge line, offering a unique opportunity to incorporate
the existing features into a quality residential development.
CRITERIA FOR RESIDENTIAL REFINEMENT PLAN DESIGNATION
The Plan Designation Criteria are the basis for applying site specific land use designations in the East Main
area. In areas where one set of criteria clearly applies the corresponding refinement plan designation shall
apply. In certain areas one set of criteria may not clearly predominate. If this occurs other factors, such as
metro area need for a specific type of land use may be considered and entered into the findings which
support these designations. All designations shall be consistent with the policies in the applicable
comprehensive plans Metro Plan policies.
1) Generally, the Low Density Residential refinement plan designation shall be applied under the following
circumstances:
A) Large areas of land that are primarily developed as high quality single-family;
B) Areas that are not interspersed with commercial development;
C) Areas that are not located directly on arterial streets;
D) Areas that are designated Low Density Residential on the Metro Plan.
2) Generally, a Medium Density Residential refinement plan designation shall be applied on the Refinement
Plan Diagram under the following circumstances:
A) Areas that are currently developed as high quality multiple-family;
B) Where designated Medium Density on the Metro Plan;
C)B) To serve as a buffer between Low Density Residential and Community Commercial;
D)C) Within one half mile of a transit transfer station;
E)D) Within one half mile of a commercial or employment center; and
F)E) Within one quarter mile of an arterial street.
3) Generally, the High Density Residential refinement plan designation shall be applied under the following
circumstances:
A) Areas that are currently developed as high quality High Density Residential;
B) Areas that are designated High Density Residential on the Metro Plan Diagram;
C)B) Areas within one half mile of a transit transfer station;
Exhibit D, Page 7 of 26
Attachment 1 Page 108 of 169
EAST MAIN REFINEMENT PLAN RESIDENTIAL ELEMENT
12
D)C) Areas which can meet the solar set-back requirements and other Development Code
restrictions;
E)D) Areas that are within one quarter mile of an arterial or collector street;
F)E) Where large vacant parcels exist or a number of smaller parcels can be put together; and
G)F) Within one half mile of a commercial or employment center.
GOAL
1) Provide a variety of sound, affordable housing for all segments of the population.
POLICIES
1) The City shall actively participate in efforts to maintain and enhance existing residential neighborhoods
and attract compatible Medium and High Density Residential developments that would improve the East
Main area.
2) Provide continued financing for the City’s home and rental rehabilitation program, preferably at current
funding levels or above, using CDBG funds and other sources.
3) The following policies shall be applied to Low Density Residential Area #1 on the Refinement Plan
Diagram.
A) Development within Area #1 shall follow the development standards contained in Article 26 [now
Section 3.3.500] of the Springfield Development Code, Hillside Development Overlay District. The
Overlay District shall apply to all of Area #1.
B) Density transfer to other portions of Area #1 shall also be allowed for portions of Area #1 with
development constraints other than slope (see Development Constraints map). In no case shall the
total number of units exceed the maximum density allowed in the LDR District.
C) Transportation and access shall be designed to be sensitive to the terrain and recognize City and
regional transportation needs.
D) A Conceptual Development Plan shall be prepared for Area #1 and approved by the Planning
Commission according to the requirements in Plan Implementation Policy #2, prior to any
development, partitioning or lot line adjustments in the area.
E) The minimum development area for Area #1 shall be 10 acres.
1. This minimum development area may be slightly reduced if the Director determines that the
development proposal is consistent with the Springfield Development Code, this refinement
plan, and the approved Conceptual Development Plan.
2. A Development Area Plan (DAP) shall be prepared according to the Plan Implementation
Policy #3.
Medium Density Residential
4) A minimum development area of 30,000 square feet shall be required for all Medium Density Residential
Development.
Exhibit D, Page 8 of 26
Attachment 1 Page 109 of 169
EAST MAIN REFINEMENT PLAN MIXED-USE ELEMENT
14
MIXED-USE ELEMENT
The Metro Plan designated most of the land along Main Street in the East Main area Medium Density
Residential with a Mixed-Use Overlay. The Metro Springfield Comprehensive Plan gives little direction to
local jurisdictions on how to implement the Mixed-Use designation. Where compatibility issues can be
addressed it may be beneficial to maintain a mixture of uses. This designation is intended to recognize the
existing mixture of uses and to provide direction for future development in mixed-use areas.
CRITERIA FOR MIXED-USE REFINEMENT PLAN DESIGNATION
1) Generally, the Mixed-Use refinement plan designation may be applied under the following circumstances:
A) At least 50% of the lots within the proposed Mixed-Use area have buildings;
B) There is a mixture of legally established uses;
C) None of the other standard refinement plan designations recognize existing development
patterns;
D) The existing zoning of a majority of the lots is in conflict with the Metro Plan or the Metro Mixed-
Use Plan designation is Mixed-Use; and
E) The area to be designated must be at least three acres in size, so that compatibility and design
issues can be addressed comprehensively.
GOAL
1) Recognize areas which have a mixing of uses and allow for flexibility or design for larger vacant areas
that are surrounded by mixed uses.
POLICIES
1) All uses shall comply with development standards of the underlying zoning as specified by the Springfield
Development Code and this Plan.
2) AREA #2
A) The following land uses are allowed under Community Commercial zoning:
• Medium and High Density Residential
• All Community Commercial uses subject to Article 18 [now Section 3.2.300] of the Springfield
Development Code.
B) All properties shall be legislatively rezoned to Community Commercial except as stated in section D
below.
C) Light Medium Industrial uses shall be permitted as follows: a Development Area Plan of at least one
acre shall be prepared in accordance with Plan Implementation Policy #3, prior to rezoning to Light
Medium Industrial. Upon completion of the rezone Light Medium Industrial uses shall be subject to
provisions of Article 20 [now Section 3.2.400] of the Springfield Development Code.
D) Allow for the continued Industrial use of developed industrial properties by maintaining the Light-
Medium Industrial zoning where:
A) Existing zoning is industrial; and
B) The true cash value of industrial buildings on the site exceeds the true cash value of the land
itself.
Exhibit D, Page 9 of 26
Attachment 1 Page 110 of 169
EAST MAIN REFINEMENT PLAN COMMERCIAL ELEMENT
16
COMMERCIAL ELEMENT
Commercial activity in the East Main area has been centered on Main Street. Traffic generated by individual
commercial activities along Main Street creates hazardous driving situations and extends the distance
needed to travel between shopping destinations.
By encouraging commercial centers rather than strip commercial development a number of benefits can be
attained: traffic is routed off the street into a centralized parking area, this allows shoppers to visit a number
of shops without driving between them, slows traffic, and creates an internal circulation pattern, relieving
pressure on the streets. These shopping centers are generally located near a large support population,
decreasing the travel time and energy spent traveling to the shops.
CRITERIA FOR COMMERCIAL REFINEMENT PLAN DESIGNATION
1) Generally, the Community Commercial refinement plan designation shall be applied under the following
circumstances:
A) Where it is not an intrusion into well-maintained residential neighborhoods;
B) Where it does not increase conflict between Low Density Residential and Commercial;
C) Where criteria for designating Medium Density Residential land does not apply;
D) Where legally created commercial uses exist;
E) Where adequate customer and service access to an arterial street can be provided; however, access
to a collector street may suffice if safe and efficient access can be provided and if the access point
(on the collector street) is within one quarter mile of an arterial street; and
F) Where designated Commercial on the Metro Plan Diagram.
GOAL
1) Provide for commercial centers which meet the needs of the community, increase transportation
efficiency and safety, and improve the appearance of the area.
POLICIES
1) Where safe and efficient vehicular access can be provided, encourage the development of neighborhood
or small commercial shopping centers at the intersections of collector streets and Main Street.
2) Apply site-specific Commercial refinement plan designations to clearly define the limits of new
commercial uses where there is not an existing, legally established, and beneficial mixing of uses.
3) Reduce the number of vehicular access points and require the rebuilding of curbs and installation of
sidewalks and street trees along Main Street, through the Site Plan Review process and in public
improvement projects.
4) Provide buffering between commercial and residential uses through Article 31 [now Section 5.17.100 of
the Springfield Development Code, Site Plan Review process].
Exhibit D, Page 10 of 26
Attachment 1 Page 111 of 169
EAST MAIN REFINEMENT PLAN INDUSTRIAL ELEMENT
17
INDUSTRIAL ELEMENT
Industrial development in east Springfield has centered around Weyerhaeuser’s Springfield operations,
occupying over 200 acres. Residential and commercial development haphazardly followed Weyerhaeuser
into the East Main area, once considered far from the city center. This unfortunate mixture of uses has
created conflict. Residents of the area complain of the smell of the pulp mill, and commercial ventures covet
the industrial land that fronts on Main Street. As these pressures build it becomes increasingly important to
assure the availability of land for the expansion of industrial uses and the compatibility of those industrial
uses with neighboring residential and commercial property.
CRITERIA FOR INDUSTRIAL REFINEMENT PLAN DESIGNATION
1) Generally, industrial refinement plan designations shall be applied under the following circumstances:
A) Metro Plan policies and the Metro Plan Diagram shall be applied in designating land for industrial use
in East Main.
B)A) Encourage large blocks of Heavy Industrial land.
C)B) Recognize existing Light-Medium Industrial uses, and consider applying the Light-Medium
Industrial refinement plan designation as a buffer between Heavy Industrial and Residential
refinement plan designations.
D)C) Minimize areas where Industrial and Residential designations abut.
GOAL
1) Encourage the location of new and expanding industrial development in the East Main area which is
compatible with surrounding uses.
POLICIES
1) The City shall encourage efforts of various agencies to attract new and retain existing jobs and
businesses.
Implementation
The City shall maintain a current inventory of vacant commercial and industrial land and structures within
the East Main area.
2) To avoid a piecemeal approach to compliance with off-site improvements required by Site Plan Review,
the City shall work with Weyerhaeuser to develop an off-site improvement plan.
3) Where Heavy Industrial Plan Designations abut residential uses, a 20-foot wide buffer with vegetative
screen shall be required.
Implementation
A) The mechanism which shall trigger the installation of this buffer shall be when a new or expanding
industrial use is proposed to come within 100 feet of a residential district.
Exhibit D, Page 11 of 26
Attachment 1 Page 112 of 169
EAST MAIN REFINEMENT PLAN ENVIRONMENTAL DESIGN & RECREATION ELEMENT
21
RECREATION
Within the East Main area there are no neighborhood parks. Neighborhood parks satisfy the recreational
needs of the local area, i.e., the neighborhood population. However, Bob Artz Memorial Park, a community
park, is also intended to serve the needs of the surrounding neighborhood. Bob Artz Memorial Park is not
easily accessible to the residents south of Main Street, thus leaving the neighborhoods south of Main Street
unserved by neighborhood parks. The population within the East Main Area according to the 1980 Census,
was 4,385. The Willamalane Comprehensive Plan standard for neighborhood parks is 2 acres of park for
every 1,000 residents. Since approximately 75% of the population is south of Main Street, the Willamalane
Standard would suggest that there is a need for 6 acres of neighborhood park area south of Main Street.
There are sites within the area which might be available to help fill the need for neighborhood park facilities.
Within the East Main area a number of planned unit developments were constructed which included required
open space. These private open spaces are currently undeveloped and poorly maintained. If properly
maintained as public open space, these sites could fill a need within the surrounding neighborhood.
Criteria for Parks Public Land and& Open Space Refinement Plan Designation10
1) The Parks Public Land and& Open Space designation shall be applied under the following
circumstances:
A) Where public and private educational facilities, parks, cemeteries and golf courses exist;
B) For public offices, libraries and similar uses located in areas designated residential on the Springfield
Comprehensive Plan MapMetro Plan Diagram;
C) Where designated as Parks and Open Space on the Metro Plan Diagram; and
D)C) Where there is a need to protect significant natural features from development.
Goal
1) Continue to develop recreational facilities which fill the needs of the local area.
Policies
1) Encourage the inclusion of private and public parks, open space, and related recreational facilities in all
residential developments.
Implementation
The following shall be considered by the City and Willamalane.
A) Dedication of Open Space areas for public use in all residential developments.
B) In-lieu of dedication, assessment of a development fee to be deposited in a trust fund for park
development in the area.
C) Consider the transfer of density in all residential developments. This would allow an area to be
retained as park land or open space by transferring the number of units from the preserved area to
another area of the development, thus increasing densities on the remaining residential land.
10 Ordinance XXX changed the name of the plan designation from Parks and Open Space to Public Land and Open Space.
Exhibit D, Page 12 of 26
Attachment 1 Page 113 of 169
EAST MAIN REFINEMENT PLAN ENVIRONMENTAL DESIGN & RECREATION ELEMENT
22
2) The City and Willamalane Park and Recreation District shall insure that adequate parks and recreational
facilities are provided to residents of the East Main area, in accordance with the Willamalane
Comprehensive Plan and other adopted plans.
3) The City shall coordinate discussions between property owners and Willamalane to ensure that the open
space facilities within the existing Planned Unit Developments are properly developed and maintained.
(See Public Features map.)
Implementation
A) If the property owners are unable to maintain the open space, a contract for maintenance by
Willamalane shall be entered into between the property owners and Willamalane, or
B) The open space shall be dedicated to Willamalane for the purpose of providing neighborhood parks in
the area.
C) These open spaces shall be designated Public Land Parks and Open Space on the Refinement Plan
Diagram, and legislatively rezoned to PLO.
Exhibit D, Page 13 of 26
Attachment 1 Page 114 of 169
MID-SPRINGFIELD REFINEMENT PLAN
(Interim Printing June 2023)
Prepared by:
Development and Public Works Department
City of Springfield
ADOPTION DATES:
City of Springfield – July 21, 1986
TEXT AMENDMENT DATES:
March 2, 1992
May 17, 1999
July 17, 2006
DIAGRAM AMENDMENT DATES:
March 2, 1987
June 18, 1990
March 2, 1992
September 21, 1992
March 6, 1995
May 15, 1995
May 17, 1999
December 6, 1999
December 9, 2002
July 18, 2005
July 17, 2006
Exhibit D, Page 14 of 26
Attachment 1 Page 115 of 169
MID-SPRINGFIELD REFINEMENT PLAN INTRODUCTION
1
INTRODUCTION
PURPOSE
The Mid-Springfield Refinement Plan will replace the Mid-Springfield Neighborhood Plan and will be
used in conjunction with the Metro Plan and TransPlan in making land use and public facilities
decisions for the Mid-Springfield areas. The primary reasons for revising this plan are: 1) to assign site-
specific Mixed-Use pPlan designations in areas designated “Mixed-Use” on the Metro Plan Diagram;
and 2) to recognize the needs of industrial and commercial land uses and to resolve conflicts with
residential neighbors. The boundaries of the planning area have been expanded to include additional
industrial areas.
The Refinement Plan Diagram is more specific than the Metro Plan Diagram. The Refinement Plan is
site-specific and shall be definitive in making land use decisions. Land use decisions made as a result
of adoption of this plan shall be incorporated into Metro Plan inventories and shall be reflected on the
Metro Plan Diagram as part of the next Metro Plan update in 1987-88.
Residential, Commercial and Industrial users of land in Mid-Springfield will be particularly interested in
the “goals and policies” section of the plan as it addresses future development in the area. A “goal” is a
statement of the general direction the City intends to follow. A “policy” is a statement mandating the
direction that the City and private developers must follow in making land use decisions and developing
property. Information about existing facilities, services, and conditions in the planning area are found
under the “findings” heading. Findings serve as the factual basis for the policies in this plan.
In addition to serving as a refinement plan and an information source, the plan will be a guide to local
decision-makers when dealing with area issues. It will be a valuable tool for commissions, committees
and neighborhood groups regarding capital improvements, budgeting, block grant allocations and
neighborhood self-improvement actions.
Finally, this plan is intended to provide for certainty in the land development process. Site-specific land
use designations have been applied based on precise and understandable criteria. Difficult decisions
are being made now, in order to provide greater certainty in the future.
RELATIONSHIP TO OTHER PLANS
COMPREHENSIVE PLANS
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range
comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and
Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning
area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan
amendment to establish a Springfield urban growth boundary and adopt a city-specific residential
element (chapter). The City has since added more elements to the Springfield Comprehensive Plan.
The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-
specific goals, policies, and implementations strategies to inform land use decisions within the
Springfield urban growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan
serve as Springfield’s applicable comprehensive plans.
Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific
comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly
supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information
about how the different elements of the Metro Plan apply to Springfield, see the Preface of the
Springfield Comprehensive Plan.
Exhibit D, Page 15 of 26
Attachment 1 Page 116 of 169
MID-SPRINGFIELD REFINEMENT PLAN INTRODUCTION
2
The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and
Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter II-G
and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield’s
urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the
Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County
Ordinance No. PA 1390 and Ordinance No. 23-07). The Springfield Comprehensive Plan Map includes
the plan designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement
Plan Diagram reflecting amendments since the Refinement Plan’s original adoption and some minor
plan designation name changes is included prior to the Table of Contents in this document. The original
Refinement Plan Diagram is retained on page 5 for historical reference.
NEIGHBORHOOD REFINEMENT PLANS
Neighborhood refinement plans often have more specific policies than those in the comprehensive
plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more
specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the
Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect
to the overall policies and purposes of the Springfield Comprehensive Plan.
Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate
changes made through adoption of more recent plans. For example, adoption of Springfield’s
Transportation System Plan resulted in changes to the functional classification of some streets which
were not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently
adopted plan generally prevails.
DESCRIPTION
The Mid-Springfield Refinement Plan covers the area bordered on the west by the railroad spur that
parallels 28th St., the eastern edge is 42nd St., the southern border is the Southern Pacific track, and the
northern boundary is the Eugene-Springfield Freeway. Within the plan boundaries are three residential
neighborhoods: Adams Plat, North Main, and South Main.
HISTORY
Pre-World War II Springfield maintained a small-town demeanor. The center of Springfield was on
Main Street near the river, and industry was to the northwest of the Main Street retail area and to the
south of the millrace (Booth-Kelly Mill). Residences were located to the north of the retail center. Only
a few residences were scattered among the filbert orchards east of 28th Street.
In 1940, the population of Springfield was 3,805, having increased by only 1,300 in the previous 30
years. In 1948, the Weyerhaeuser Company arrived in Springfield and in 1949, Booth-Kelly enlarged
and modernized its mill. By 1950 Springfield had grown to 10,087.
In 1960 the Mid-Springfield area was annexed to the City of Springfield. At that time it was a rapidly
developing area that lacked public service such as storm and sanitary sewers, parks, and fully
improved streets. Springfield is still in the process of providing the full range of urban services to an
area that developed under county standards.
Since the adoption of the Mid-Springfield Refinement Plan in July 1986, several significant planning
activities have occurred which have a direct impact on the implementation policies in this Plan. These
activities include the update of the Metro Plan, adopted in April 1987; adoption of TransPlan in July
2001; and adoption of Article 40 Mixed-Use Zoning Districts [now Section 3.2.600] and Article 41 /Nodal
Development Overlay District [now Section 3.3.1000] in 2002. (Paragraph added by Ordinance Number
6178; Adopted July 17, 2006.) The Mid-Springfield Refinement Plan Diagram was the basis for the
Springfield Comprehensive Plan Map.
Exhibit D, Page 16 of 26
Attachment 1 Page 117 of 169
MID-SPRINGFIELD REFINEMENT PLAN FINDINGS AND CONCLUSIONS
6
INDUSTRIAL
1) The mix of industrial and residential uses in the Adams Plat have resulted in conflicts between the
two uses.
2) In the Adams Plat there are four gravel roads and only two fully improved streets. The storm
sewers and fire flows are inadequate for further industrial development in the Adams Plat area.
3) There is inadequate visual screening between industrial and residential uses where these uses
adjoin each other.
4) The lots in the Adams Plat are often too small to accommodate the need of new industrial
development.
5) Screening of industrial uses from streets is inadequate.
6) The Metro Plan gives direction on the applicability of industrial designations in the Mid-Springfield
area.1
7) There is a need to reduce the conflicts which arise when Heavy Industrial uses locate adjacent to
Residential uses.
8) Light-Medium Industrial land is acting as a buffer between Heavy Industrial uses and Residential
uses in some areas of the Mid-Springfield Refinement Plan area.
9) There are no Industrial uses abutting Main Street.
10) There are industrial buildings that represent a substantial capital investment that are located in
areas planned for residential or commercial use.
COMMERCIAL
1) Main Street serves as a regional access route to the McKenzie River recreation corridor and to
Central and Eastern Oregon and is classified as a major arterial.
2) The general appearance along Main Street is one of haphazard, unkept commercial development,
with the notable exception of the development around 42nd Street.
3) With lot-by-lot strip development of Main Street there has been no coordination of design.
4) There is need for a refinement plan for East Main Street to set the limits of commercial expansion
into residential areas, and to provide for certainty in the development of commercial land.
5) 42nd and Main streets is a major commercial node for East and Mid-Springfield.
TRANSPORTATION
1 These findings supported the refinement plan adoption and have not been updated to reflect that the Land Use Element of the
Springfield Comprehensive Plan Map replaces the Metro Plan Diagram Chapter II -G for areas with Springfield’s UGB, which
includes plan designation descriptions.
Exhibit D, Page 17 of 26
Attachment 1 Page 118 of 169
MID-SPRINGFIELD REFINEMENT PLAN INDUSTRIAL DEVELOPMENT POLICIES
10
CRITERIA FOR DESIGNATING INDUSTRIAL LAND
1) Applicable policies from Springfield’s comprehensive plans Metro Plan policies and the Metro Plan
Diagram shall be applied in designating land for industrial use in Mid-Springfield.
2) Encourage large blocks of Heavy Industrial land.
3) Recognize existing light-medium industrial uses, and consider applying the Light-Medium Industrial
plan designation as a buffer between Heavy Industrial and Residential plan designations.
4) Minimize industrial development along Main Street.
5) Minimize areas where Industrial and Residential designations abut, except in Nodal Development
Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan. (Criterion
amended by Ordinance Number 6178; Adopted July 17, 2006.)
Exhibit D, Page 18 of 26
Attachment 1 Page 119 of 169
MID-SPRINGFIELD REFINEMENT PLAN RESIDENTIAL DEVELOPMENT POLICIES
14
of any point on the current boundary of the Neste Plant site. (Policy added by Ordinance 5616,
adopted March 2, 1992.)
14) The MDR designation of this site shall be subject to re-evaluation during periodic review unless the
following circumstances are found to exist: (Policy added by Ordinance 5616, adopted March 2,
1992.)
a. Substantial progress has been made on the project and the project as built and operated
conforms substantially to the representations concerning affordability made by the
applicant during the Metro Plan amendment process; or
b. An affirmative determination can be made, in light of all the circumstances, including the
City of Springfield’s forthcoming Housing Plan, that the property should be retained for
affordable housing; and
c. Examples of substantial progress shall include acquisition of bonds to finance
construction, completion of site plan review and start of construction.
CRITERIA FOR DESIGNATING RESIDENTIAL LAND
1) Generally the Medium Density Residential plan designation shall be applied under the following
circumstances:
a) To areas that are currently developed as high quality multiple-family;
b) To large under-developed areas immediately adjacent to commercially designated land
along Main Street;
c) On the west side of 42nd Street;
d) Where designated exclusively Medium Density Residential (as opposed to “Mixed-Use”) on
the Metro Plan Diagram including Nodal development Area 9C as shown on the Potential
Nodal Development Areas Map in TransPlan; (Criterion amended by Ordinance Number
6178; Adopted July 17, 2006. This Ordinance referenced Criterion 3c in relation to
amending Criteria for Designating Residential Land. However, criterion 1d as presented
herein is the correct criterion.)
e) To serve as a buffer between single-family and commercial uses along Main Street;
2) Generally the Low Density Residential plan designation shall be applied under the following
circumstances:
a) To large areas of land that are clearly single-family in character;
b) To areas that have not been seriously and directly affected by pockets of industrial or
commercial development;
c) To areas that are not located directly on Main Street;
d) To areas that are designated exclusively for Low Density Residential (as opposed to “Mixed-
Use”) use on the Metro Plan.
Exhibit D, Page 19 of 26
Attachment 1 Page 120 of 169
Q STREET REFINEMENT PLAN
(Interim Printing June 2023)
Prepared by:
Development and Public Works Department
City of Springfield
ADOPTION DATE:
City of Springfield – March 16, 1987
TEXT AMENDMENT DATE:
June 18, 2007
DIAGRAM AMENDMENT DATES:
June 18, 2007
April 16, 2018
Exhibit D, Page 20 of 26
Attachment 1 Page 121 of 169
Q STREET REFINEMENT PLAN INTRODUCTION
1
INTRODUCTION
HISTORY
Planning in the Q Street area has been evolving in the last 20 years. The Q Street area had
been rapidly growing, leaving large areas of vacant land between developments, with little policy
direction to provide for orderly development. In 1972 the Eugene/Springfield Metropolitan Area
1990 General Plan was adopted. The Q Street area was designated Low Density Residential
with a strip of Medium Density Residential north of Q Street between 5th and 19th Streets.
The North Springfield Community Plan, one of the first refinement plans of the newly adopted
1990 General Plan, took a closer look at the area north of the Eugene/Springfield Highway. In
this plan the Q Street area was examined in more detail; the area at the corner of the 2nd/3rd
Street Couplet and Q Street was designated Low-Medium Density Residential (5-10 units/acre),
the area between 5th and 7th Street adjacent to Q Street was designated Neighborhood
Commercial, the area south of Q Street was designated Service Wholesale, and the area
between 10th and 15th streets was designated Medium Density Residential (10-15 units per
acre) if certain “detailed development criteria” were met (i.e., a Development Area Plan
concept). These “detailed development criteria” required such things as combining narrow tax
lots into developments of no less than 3.75 acres in size, using an internal circulation pattern.
The North Springfield Community Plan guided planning in the Q Street area until the adoption of
the Metropolitan Area General Plan (Metro Plan) in 1980. The Metro Plan recognized the need
for a community commercial center in the Q Street area and designated a section between N.
2nd and 7th Streets Community Commercial (for other designations see the Metro Plan map on
page II-E-25 of the Metro Plan).
The Q Street Refinement Plan is the latest evolution of planning in the Q Street area. A citizen
review group was formed in September of 1986 to develop a draft Q Street Refinement Plan.
Shortly after the committed completed their work in late October, a neighborhood meeting was
held at Page School to present the Plan to area residents. The comments received at the
neighborhood meeting were forwarded to the Planning Commission at their November 5 work
session. At the Planning Commission’s December 3 public hearing on the Plan, the commission
directed staff to get together with property owners in the area between 2nd Street and 5th Street
north of Q Street, to work out a compromise to the proposed 4-acre development area concept
in that area.
The property owners formed a representative committee to work with staff from the Planning
and Development Department. This committee met four times between mid-December and the
February 4th Planning Commission public hearing. General consensus of the property owners in
the area was reached on a compromise which was forwarded to the Planning Commission.
The Q Street Refinement Plan will be used in conjunction with the Metro Plan and TransPlan in
making land use and public facilities decisions for the Q Street area.
Exhibit D, Page 21 of 26
Attachment 1 Page 122 of 169
Q STREET REFINEMENT PLAN INTRODUCTION
2
PURPOSE
The Q Street Refinement Plan guides local development and decisions with land use policies
addressing this area’s specific issues and needs. The application of site-specific plan
designations is based on findings of fact and clear criteria. Refinement Plan designations,
policies, and implementation actions are designed to minimize the negative impacts of
development on existing residential neighborhoods and natural resources, while facilitating
development consistent with applicable comprehensive plans.
The Refinement Plan Diagram is more specific than the Metro Plan Diagram. This Refinement
Plan is site-specific and shall be definitive in making land use decisions. Land use decisions
made as a result of adoption of this plan shall be incorporated into Metro Plan inventories and
shall be reflected on the Metro Plan Diagram.
A “policy” is a statement mandating the direction that private developers, the City and other
public agencies must follow in making land use decisions and developing property. Information
about existing facilities, services, and conditions in the planning area are found under the
“findings” heading. Findings serve as the factual basis for the policies in this plan. The “Plan
Diagram” is a graphic depiction of site-specific land use designations, and when used in
conjunction with plan policies, gives direction for development in the Q Street area.
In addition to serving as a refinement plan and an information source, the plan will be a guide to
local decision-makers when dealing with area issues. It will be a valuable tool for commissions,
committees, and neighborhood groups regarding capital improvements, budgeting, block grant
allocations and neighborhood self-improvement actions.
Finally, this plan is intended to provide for certainty in the land development process. Site-
specific land use designations have been applied based on precise and understandable criteria.
PLAN RELATIONSHIPS
COMPREHENSIVE PLANS
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range
comprehensive plan that establishes the broad policy framework upon which Springfield,
Eugene, and Lane County make coordinated land use decisions within the Eugene-Springfield
Metropolitan planning area. In 2011, Springfield began to create its own Comprehensive Plan,
which started with a Metro Plan amendment to establish a Springfield urban growth boundary
and adopt a city-specific residential element (chapter). The City has since added more elements
to the Springfield Comprehensive Plan. The Springfield Comprehensive Plan is the local long-
range comprehensive plan that establishes city-specific goals, policies, and implementations
strategies to inform land use decisions within the Springfield urban growth boundary. Together,
the Metro Plan and Springfield Comprehensive Plan serve as Springfield’s applicable
comprehensive plans.
Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific
comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements
explicitly supplant the relevant portion of the Metro Plan while others supplement the Metro
Plan. For information about how the different elements of the Metro Plan apply to Springfield,
see the Preface of the Springfield Comprehensive Plan.
Exhibit D, Page 22 of 26
Attachment 1 Page 123 of 169
Q STREET REFINEMENT PLAN INTRODUCTION
3
The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element
and Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram
Chapter II-G and remove the plan designations shown on the Metro Plan Diagram for areas
within Springfield’s urban growth boundary. These amendments were adopted by Springfield
City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield
Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07). The
Springfield Comprehensive Plan Map includes the plan designations from adopted
Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting
amendments since the Refinement Plan’s original adoption and some minor plan designation
name changes is included prior to the Table of Contents in this document. The original
Refinement Plan Diagram is retained on page 15 for historical reference.
NEIGHBORHOOD REFINEMENT PLANS
Neighborhood refinement plans often have more specific policies than those in the
comprehensive plans due to more detailed analysis of neighborhood needs and aspirations. In
these cases, the more specific or restrictive policies typically prevail. In the case of an actual
conflict between plan policies, the Springfield City Council has the authority to interpret the
provision that prevails, to give maximum effect to the overall policies and purposes of the
Springfield Comprehensive Plan.
Some neighborhood refinement plans, created decades ago, have not been fully updated to
incorporate changes made through adoption of more recent plans. For example, adoption of
Springfield’s Transportation System Plan resulted in changes to the functional classification of
some streets which were not incorporated into the Neighborhood Refinement Plans. In such
cases, the more recently adopted plan generally prevails.
Exhibit D, Page 23 of 26
Attachment 1 Page 124 of 169
Q STREET REFINEMENT PLAN CRITERIA FOR PLAN DESIGNATIONS
7
CRITERIA FOR PLAN DESIGNATIONS
The Criteria for Plan Designations are the basis for assigning site specific land use
designations in the Q Street Area. In areas where one set of criteria clearly applies the
corresponding plan designation shall apply. In certain areas one set of criteria may not
clearly predominate. If this occurs, other factors such as metro area need for a specific
type of land use shall be considered and entered into the findings which support these
designations. All designations shall be consistent with policies from applicable Metro
comprehensive plan policies.
COMMERCIAL
1) The Ccommunity Commercial plan designation shall be applied to areas adjacent to
existing Ccommunity Ccommercial on the Springfield Comprehensive Plan Map
Metro Plan Diagram or an area of four acres or larger not adjacent to Community
Commercial on the Metro Plan Diagram. In both cases, the following circumstances
must predominate:
a) Where it is not an intrusion into well-maintained residential
neighborhoods;
b) Where it would not increase land use conflicts between Low Density
Residential and Community Commercial land uses;
c) Where legally established, pre-existing commercial uses exist;
d) Where adequate customer and service access to an arterial street can be
provided; however, access to a collector street may suffice if safe and
efficient access can be provided and if the access point (on the collector
street) is within one quarter mile of an arterial street;
e) Areas that are designated Commercial on the Metro Plan Diagram.
2) The General Office refinement plan designation may be applied in areas with existing
Residential Metro Plan designations without altering the Metro Plan General Land
Use Diagram. To create or expand an area with this refinement plan designation, the
following criteria must be met:
a) The area of the designation must be adjacent to a boundary between
Residential and Community Commercial or Major Retail Commercial
Metro pPlan designations.
b) An area must be at least one acre in size to receive the General Office
refinement plan designation.
c) A General Office designated area shall not be created or expanded to
greater than 1.5 acres in size unless the development area abuts a
collector or arterial street.
Exhibit D, Page 24 of 26
Attachment 1 Page 125 of 169
Q STREET REFINEMENT PLAN CRITERIA FOR PLAN DESIGNATIONS
8
d) A General Office designated area shall not be created or expanded
greater than 5 acres in size.
RESIDENTIAL
1) The Low Density Residential plan designation shall be applied where the following
circumstances predominate:
a) Areas that are primarily developed as single family;
b) Areas that are not intermixed with community commercial development;
c) Areas that are not located directly on arterial streets;
d) Areas that are designated Low Density Residential on the Metro Plan
Diagram.
2) The Medium Density Residential plan designation shall be applied where the
following circumstances predominate:
a) Areas that are primarily developed as high quality Medium Density
Residential;
b) Areas that are designated Medium Density Residential, or adjacent to
Medium Density Residential designations, on the Metro Plan diagram;
c) Areas that could serve as a buffer between Low Density Residential and
Community Commercial;
d) Areas that are within one-half mile of a transit transfer station.
3) The High Density Residential plan designation shall be applied where the following
circumstances predominate:
a) Areas that are primarily developed as high quality High Density
Residential;
b) Areas that are designated High Density Residential, or are adjacent to
High Density Residential designations on the Metro Plan Diagram;
c) Areas that are within one-half mile of a transit transfer station;
d) Areas that are within one-half mile of large Community Commercial
centers;
e) Areas which can meet the solar setback requirements and other
Development Code standards;
f) Areas that are within one quarter mile of an arterial or collector street.
Exhibit D, Page 25 of 26
Attachment 1 Page 126 of 169
Q STREET REFINEMENT PLAN POLICIES
9
POLICIES
COMMERCIAL
1) Provide vacant and re-developable land to allow for the expansion of commercial
uses, and to encourage new commercial development.
2) Encourage commercial shopping centers—as opposed to isolated or strip
commercial uses to achieve: 1) Increased design flexibility; 2) Minimize the impacts
of commercial development on adjacent residential neighborhoods, and 3) Reduce
the number of access points on arterial and collector streets.
3) Where safe and efficient vehicular access can be provided, encourage the
development of commercial shopping centers at the intersection of minor arterials
and Q Street (a collector).
4) The development of a community commercial center at the northeast corner of the
Couplet and Q Street would require a number of traffic and highway facility
improvements, similar to those in the traffic impact study which has been prepared
for the area. All such traffic improvements rest with the developer.
5) Apply site-specific Commercial plan designations to clearly define the limits of
commercial uses.
6) Apply site plan review conditions (Article 31, Springfield Development Code) [now
Section 5.17.100] to commercial development to: 1) Improve the appearance of Q
Street area; and, 2) Minimize conflicts with residentially-designated areas.
7) Reduce the number of curb cuts and require the rebuilding of curbs through the site
plan review process, especially along Q Street. Joint access shall be required of
Residential Professional uses on land zoned Low Density Residential within the Plan
Designation of Community Commercial.
8) The expansion of existing or location of new Neighborhood Commercial shall occur
according to the Neighborhood Commercial locational criteria contained in the Land
Use Element of the Springfield Comprehensive PlanMetro Plan, page II.E.6.
9) The General Office refinement plan designation establishes areas to which the GO -
General Office zoning district may be applied. Areas so designated serve as
transition zones, buffering residential development from more intensive commercial
development in areas with commercial plan designations. The General Office
refinement plan designation provides appropriate locations for business and
professional offices such as financial, insurance and real estate services.
RESIDENTIAL
1) The City shall actively participate in efforts to maintain and enhance existing
residential neighborhoods and attract compatible medium and high density
residential developments that would enhance and benefit the Q Street area. This
Exhibit D, Page 26 of 26
Attachment 1 Page 127 of 169
Exhibit E
Downtown Refinement Plan Amendments
(Springfield-only adoption)
Downtown Refinement Plan:
•Replace the Parks and Open Space designation with a Public Land and Open Space
designation, as shown on the Refinement Plan Diagrams in Exhibit A, and where
referenced in the text, as shown in track changes on the following pages
•Replace the Nodal Development/Mixed Use base designation with a Mixed Use base
designation, as shown on the Refinement Plan Diagrams in Exhibit A, and where
referenced in the text, as shown in track changes on the following pages
•Apply Nodal Development as an overlay to the Mixed Use base designation as shown on
the Refinement Plan Diagrams in Exhibit A, and where referenced in the text, as shown
in track changes on the following pages
•Replace reference to the Metro Plan Diagram with reference to the Springfield
Comprehensive Plan Map and replace reference to Metro Plan text with reference to
the Springfield Comprehensive Plan, as shown in track changes on the following pages
•Add text referencing the Springfield Comprehensive Plan to make the distinction
between the Metro Plan and/or relationship to refinement plans, as shown in track
changes on the following pages
•Clarify the policies of the Public Spaces Element by retaining the new policies presented
in Ordinance 6148 (2005) and deleting the policies first adopted with the original
Refinement Plan in 1986 as shown on the following pages.
Exhibit E, Page 1 of 11
Attachment 1 Page 128 of 169
DOWNTOWN REFINEMENT PLAN
Prepared by:
Development and Public Works Department
City of Springfield
ADOPTION DATE:
City of Springfield – February 18, 1986
TEXT AMENDMENT DATES:
November 7, 2005
DIAGRAM AMENDMENT DATES:
September 22, 1986
May 14, 1987
December 21, 1987
November 7, 2005
Exhibit E, Page 2 of 11
Attachment 1 Page 129 of 169
DOWNTOWN REFINEMENT PLAN INTRODUCTION
2
Public Works Department, and the citizens of Springfield. This Plan will be used by the
City, other government agencies, and the community as a policy guide for revitalizing
Downtown Springfield and will also be a source of useful information. The City of
Springfield shall use this plan when conducting site review of development projects in
the Downtown area.
This update of the Downtown Refinement Plan is significantly influenced by the outcome
of the Station Area Plan project. That effort began in 2000 and concluded with the
publication of the Springfield Station Specific Area Plan in July, 2001. Included in that
plan were a number of recommendations for new and revised policies; additions and
deletions to the projects lists; and replacement of existing conditions descriptions with
more contemporary language. The project participants included Silva Sullivan, Susan
McCallum, Michael Buckridge, Ralph Smeed, Beto Rubio and Don Moloney, Downtown
business/property owners; Bill Carpenter and Sean Wilson, Planning Commission; Mark
Pandborn, LTD; Tom Draggoo, Springfield Chamber of Commerce; Dennis Shine,
Community-at-large; Tom Boyatt, ODOT; Elizabeth Ledet, Oregon TGM program; and
Mark Metzger and Cynthia Pappas, Springfield Staff. (Paragraph added by Ordinance
Number 6148; Adopted November 7, 2005.)
The Plan boundaries encompass the area bordered by the Willamette River on the west;
the Washburn Historic District and the East Kelly Butte Neighborhood on the north, 10th
Street on the east, and the Mill Pond and the Mill Pond and Booth-Kelly Mixed-Use Area
under City ownership on the south. (Paragraph added (replaced prior last paragraph) by
Ordinance Number 6148; Adopted November 7, 2005.)
RELEVANT PLANNING ACTIVITY IN THE DOWNTOWN AREA
City planning in Springfield was in its infancy in 1947 when the City passed the
Comprehensive Zoning Plan of the City of Springfield. In 1950 the long-range street
program, A Master Plan for Street and Highway Development, was adopted. Other
plans in effect during this period included storm drainage and street lighting plans.
During the late 1950’s planning became more involved with the development of
Direction for Development – A Workable Program for Urban Renewal and in 1959,
the Development Plan: Eugene-Springfield Metropolitan Region.
The first mention of Downtown’s special problems is in the 1968 Core Area Plan by
Lutes and Amundson. This document was comprehensive study of the Core Area
including field surveys, inventories, findings and recommendations, and goals and
objectives. This plan covered the area bounded by North B Street, 8th Street, South A
Street, and 3rd Street.
In 1972, A Plan for Downtown was adopted by the City Council. This document
emphasized land use, circulation, and public facilities. The size of the area covered by
this plan was expanded from that covered by the Core Area Plan to include C Street
and Island Park. The increased plan area reflects the changing perception of the
“Downtown”.
The Metro Area General Plan was adopted and acknowledged in 1982. Since that
time, it has been the primary policy document for Downtown Springfield.
Exhibit E, Page 3 of 11
Attachment 1 Page 130 of 169
DOWNTOWN REFINEMENT PLAN INTRODUCTION
3
In 1984 there was a flurry of activity related to planning for the Downtown area. In
February the Springfield Downtown Commission submitted the Downtown Tomorrow
report. This report makes specific recommendations concerning tasks to be undertaken
to establish an attractive and healthy Downtown. In March, the National Main Street
Resources Team finished their document, the Resource Team Report for Springfield,
Oregon. In June of 1984 Jerome Diethelm, completed the Conceptual Landscape
Plan. The Conceptual Landscape Plan built on the ideas outlined in Downtown
Tomorrow and offered numerous design suggestions. Both the Conceptual
Landscape Plan and Downtown Tomorrow include the Booth-Kelly site in their
description of Downtown.
Since adoption of the Downtown Refinement Plan in February 1986, several significant
planning activities have occurred which have a direct impact on the implementation of
the policies in this Plan. These activities include adoption of the Booth-Kelly Mixed-Use
District in July, 1986; adoption of a Concept Plan for Booth-Kelly in 1989; the update of
the Metro Plan, adopted in April, 1987; the Station Area Specific Plan, completed in July,
2001; adoption of TransPlan in July, 2001; adoption of Article 40 Mixed-Use Zoning
Districts [now Section 3.2.600 of the Springfield Development Code] and Article 41
Nodal Development Overlay District [now Section 3.3.1000 of the Springfield
Development Code] in 2002, and adoption of Willamalane’s Park and Recreation
Comprehensive Plan in November, 2004. (Paragraph added by Ordinance Number
6148; Adopted November 7, 2005.) The Downtown Refinement Plan Diagram was the
basis for the Springfield Comprehensive Plan Map.
RELATIONSHIP TO OTHER PLANS
COMPREHENSIVE PLANS
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional
long-range comprehensive plan that establishes the broad policy framework upon which
Springfield, Eugene, and Lane County make coordinated land use decisions within the
Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its
own Comprehensive Plan, which started with a Metro Plan amendment to establish a
Springfield urban growth boundary and adopt a city-specific residential element
(chapter). The City has since added more elements to the Springfield Comprehensive
Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan
that establishes city-specific goals, policies, and implementations strategies to inform
land use decisions within the Springfield urban growth boundary. Together, the Metro
Plan and Springfield Comprehensive Plan serve as Springfield’s applicable
comprehensive plans.
Metro Plan Chapter I explains the relationship between its broad policy framework, city-
specific comprehensive plans, and refinement plans. Some Springfield Comprehensive
Plan elements explicitly supplant the relevant portion of the Metro Plan while others
supplement the Metro Plan. For information about how the different elements of the
Metro Plan apply to Springfield, see the Preface of the Springfield Comprehensive Plan.
The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use
Element and Springfield Comprehensive Plan Map, which replace the text in the Metro
Plan Diagram Chapter II-G and remove the plan designations shown on the Metro Plan
Diagram for areas within Springfield’s urban growth boundary. These amendments were
adopted by Springfield City Council in 2023 and the Lane County Board of
Exhibit E, Page 4 of 11
Attachment 1 Page 131 of 169
DOWNTOWN REFINEMENT PLAN INTRODUCTION
4
Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance
No. PA 1390 and Ordinance No. 23-07). The Springfield Comprehensive Plan Map
includes the plan designations from adopted Neighborhood Refinement Plan Diagrams.
An updated Refinement Plan Diagram reflecting amendments since the Refinement
Plan’s original adoption and some minor plan designation name changes is included
prior to the Table of Contents in this document. The original Refinement Plan Diagram
shown in Map 4 is retained for historical reference.
NEIGHBORHOOD REFINEMENT PLANS
Neighborhood refinement plans often have more specific policies than those in the
comprehensive plans due to more detailed analysis of neighborhood needs and
aspirations. In these cases, the more specific or restrictive policies typically prevail. In
the case of an actual conflict between plan policies, the Springfield City Council has the
authority to interpret the provision that prevails, to give maximum effect to the overall
policies and purposes of the Springfield Comprehensive Plan.
Some neighborhood refinement plans, created decades ago, have not been fully
updated to incorporate changes made through adoption of more recent plans. For
example, adoption of Springfield’s Transportation System Plan resulted in changes to
the functional classification of some streets which were not incorporated into the
Neighborhood Refinement Plans. In such cases, the more recently adopted plan
generally prevails.
Exhibit E, Page 5 of 11
Attachment 1 Page 132 of 169
DOWNTOWN REFINEMENT PLAN LAND USE ELEMENT
13
Revitalize the Downtown with New Uses. Create new opportunities for office, commercial,
residential, civic, and mixed uses. Encourage high-density uses that are transit-oriented
and located within a short walk from Springfield Station.
Ensure Adequate Parking. Provide parking that supports a vital downtown.
Create Civic Gathering Places. Create great public spaces, both large and small. Consider
creation of a town square.
Identify Catalyst Projects. Identify projects that will spur growth in the downtown, including
improvements that can be successfully accomplished in the short term.
Create Downtown Partnerships. Collaborate with Lane Transit District, the Springfield
Renaissance Development Corporation, and other groups to coordinate efforts and build
community support.
Establish a Possible Identity for the Downtown. Work with downtown business interests and
the Springfield community to foster a positive identity and sense of pride for the downtown.
Develop the Downtown as the Gateway to Springfield. Work to achieve a visual impression
in the Downtown that reflects well on the rest of the city.
POLICIES
A) General (Amended by Ordinance Number 6148; Adopted November 7, 2005.)
1) The City shall actively work to enhance the redevelopment and diversity of Downtown by
promoting mixed use development within the downtown blocks, on single or aggregated
tax lots, and within individual buildings. Emphasis should be directed towards expanding
retail, entertainment and office opportunities and increasing residential uses above
ground-floor businesses.
Implementation
The Metropolitan Area General Plan diagram and Downtown Refinement Plan Diagram,
shall be amended to designate the Downtown Mixed-Use Area as Nodal
Development/Mixed-Use area to Mixed Use with an overlay of Nodal Development,
except that the two-block area between 8th and 10th Streets and the block between 7th
and 8th Streets on the north side of A Street shall remain Mixed-Use Commercial.
All private property within the Nodal Development/Mixed -Use plan diagram designation
shall be rezoned Mixed-Use Commercial (MUC) except existing multi-family residential
use shall be rezoned Mixed-Use Residential (MUR). Property outside the nodal
designationNodal Development overlay but within the Downtown Mixed -Use area may
be zoned either Mixed-Use Commercial or Community Commercial.
All publicly owned property within the Nodal Development/Mixed -Use plan diagram
designation may be zoned Public Land and Open Space (PLO).
2) Civic and governmental uses serving the Springfield community shall be encouraged to
locate in the Downtown area. Within the downtown, governmental uses, including City
Hall, the Justice Center and Jail, the Library, Willamalane and SUB Offices, shall be
encouraged to locate and expand along A Street. Other civic uses or public places,
Exhibit E, Page 6 of 11
Attachment 1 Page 133 of 169
DOWNTOWN REFINEMENT PLAN LAND USE ELEMENT
14
such as theaters, parks, museums, plazas, and other sites of public interest, should be
dispersed throughout downtown to encourage walking from place to place, provide
visual contrast to the built environment, and compliment adjoining businesses.
B) Downtown Mixed -Use Plan DesignationArea and Nodal Development Overlay
(Amended by Ordinance Number 6148; Adopted November 7, 2005.)
1) The Mixed-Use Commercial zoning land use district shall be applied within the nodal
overlay to accommodate a mix of commercial, offices, residential, and open space uses.
Design and development standards shall promote a minimum of 2-story buildings with
pedestrian-friendly design and placement. The Mixed-Use Residential zoning land use
district shall be applied within the nodal overlay area to property currently occupied
exclusively by multi-family residential uses. The Public Land and Open Space zoning
land use districts may be applied within this area to all land owned by the City of
Springfield, Willamalane Park and Recreation District and the Springfield Utility Board.
Commercial property in the Downtown Mixed -Use boundary, but outside the nodal
overlay may be zoned Mixed-Use Commercial or Community Commercial.
2) Multi-family residential shall be allowed as the sole use of a building or as one of several
uses permitted within a mixed-use building or development area. Multi-family housing
within 3 blocks of Springfield Station shall have a minimum density of 12 dwelling units
per acre. Residential use within a mixed-use building is exempt from this density
standard.
3) Development along edges of the Downtown Refinement Plan area should include design
and development features that promote compatibility and transition to adjacent uses.
4) At the time of Zoning Map amendment to a specific mixed-use zone permitted within the
Downtown Mixed -Use area, the presence of any lawful use that would then not be
permitted within that zone shall be considered a pre-existing permitted use. This may
continue or expand, regardless of ownership transfer, unless abandoned for 6 months or
more as specified in Springfield Development Code Article 5 [now Section 5.18.100],
Non-Conforming Use.
C) Booth-Kelly Development Area (Amended by Ordinance Number 6148; Adopted
November 7, 2005.) (Refer to Plan Diagram)
1) The Booth-Kelly Development Area (BKDA), as depicted on the Downtown Refinement
Plan Diagram, generally includes the area lying directly adjacent to and south of the Mill
Race Restoration Area (as described below).
2) A conceptual development plan(s) shall be prepared for the entire Booth-Kelly
Development Area and reviewed by the Planning Commission prior to development
(including partitioning or subdividing) occurring on the side.
Development proposed for the site shall normally have a development area of at least 10
acres and comply with an approved conceptual development plan; development of a
smaller size may be appropriate if consistent with the conceptual development plan. The
conceptual development plan and any subsequent modifications shall comply with the
following policies, and be kept on file in the Planning and Development Department. The
conceptual development plan for the Development Area shall:
a) Redevelopment of the site should be sensitive to the natural and historic features of
the site, particularly the Mill Race, Mill Pond, riparian vegetation and forested slopes;
Exhibit E, Page 7 of 11
Attachment 1 Page 134 of 169
DOWNTOWN REFINEMENT PLAN LAND USE ELEMENT
18
PLAN DIAGRAM DESIGNATIONS
When used with the policies and implementations contained in the text of this plan, the Plan
Diagram designations provide direction for decisions pertaining to appropriate redevelopment,
urbanization of vacant parcels, and increased use of underdeveloped parcels.
Public Landarks and Open Space
This designation includes existing publicly owned metropolitan parks, regional scale parks,
and publicly owned area of significant natural vegetation. The Mill Race is included because
it is intended as an important open space element of the downtown. This designation also
includes major governmental and utility office complexes and facilities.
Heavy Industrial
This designation includes industries which are generally involved in the primary processing
of raw materials such as: lumber and wood products, paper, chemicals and primary metal
manufacturing, power plants, and railroad yards. (For further information see the Metro Area
General Plan, page II-E-7Land Use Element of the Springfield Comprehensive Plan)
Downtown Mixed Use Area and Nodal Development Overlay
This designation encourages a mixing of compatible uses, including residential, commercial,
office/professional and urban open space.
Booth-Kelly Development Area
This designation includes the following general uses; all campus industrial, office, light-
medium industrial, tourist commercial, service and retail commercial, medium density
residential (minimum 12 dwelling units per acre), parks and recreation, educational facilities,
regional designation, other uses compatible with a conceptual development plan and with
other criteria outlined in the Booth-Kelly Development Area policies.
Exhibit E, Page 8 of 11
Attachment 1 Page 135 of 169
DOWNTOWN REFINEMENT PLAN ACCESS, CIRCULATION, AND PARKING ELEMENT
22
ACCESS, CIRCULATION, AND PARKING ELEMENT
This element looks at access, circulation, and parking for all modes of travel to and through the
Downtown. The intent of this element is to identify opportunities to create or improve the
systems used to move people and goods efficiently, to recognize the important role parking
plays on the success of Downtown endeavors, and to emphasize the key significance of a safe
and inviting pedestrian environment.
The major access routes to the Downtown are Main and South A Streets and Pioneer Parkway
East and West. The Main-South A couplet is the major carrier of east-west traffic while the
Pioneer Parkway couplet performs the same function for north-south traffic. Additional principal
elements of the Downtown’s grid system of streets include Mill Street 5th, 7th and 10th as
secondary north-south conduits, and A and B Streets as east-west collectors. Although the
remaining streets in the grid are classified as “local,” they, along with the network of alleys
throughout most of the mid-blocks, provide excellent access and direct line of travel for
inhabitants, visitors, and customers of the Downtown, regardless of selected travel mode.
A number of positive changes have occurred to this system since the adoption of the Downtown
Plan 1986. Among the more noteworthy area:
• Construction of “bulb-outs” on Main and South A;
• Construction of separate left turns for Mill and Pioneer Parkway East;
• Right turn lane and entry improvements on Fifth into Booth-Kelly Center;
• Relocation of Springfield Station to South A between 4th and Pioneer Parkway East;
• Commencement of Bus Rapid Transit along Main-South A;
• Completion of Environmental Impact Statement for BRT on Pioneer Parkways;
• Designation by ODOT of Main Street as a Special Transportation Area;
• Construction of a bike/ped path in Pioneer Parkway median; and
• Pedestrian crossing of South A to the new Transit Station.
As beneficial as these improvements have been, more work needs to be performed to improve
the pedestrian environment. The City has begun a project along Main Street to place benches
and planters at regular intervals. This same effort should be expanded along the north-south
streets and along both “A” Streets. Pedestrian level lighting also is proposed for Main Street
and should be expanded to the same manner as the street furniture program.
Bicycle opportunities are less than desirable as the Downtown currently has no designated,
striped east-west routes. Shared sidewalks with pedestrians or streets with cars does not
engender this efficient travel alternative. Several bikeway projects have been identified in the
Springfield Bicycle Plan. Willamalane’s Park and Recreation Comprehensive Plan and
TransPlan (TP), including TP Project 830, Main and South A, striped lane, Springfield bridges to
east UGB; TP Project 840, Mill Race Path, multi-use path, S. 2nd to S. 28th; and TP Project 837,
striped lane, Mill Street, South A to Fairview Drive. All of these projects are “un-programmed”
that is no source of money was identified to construct these improvements therefore they are on
indefinite hold. The City should establish a high priority for these projects to enable funding and
construction in the near-term. As an additional measure to encourage bicycle use, new
development of all types shall provide secured bicycle parking.
Off-street parking remains a real and perceived issue for downtown merchants. Although there
are several thousand spaces in the Downtown’s Mixed -Use area, many are occupied by
employees, many are restricted by permit only, and the larger lots are not close by to
Exhibit E, Page 9 of 11
Attachment 1 Page 136 of 169
DOWNTOWN REFINEMENT PLAN PUBLIC SPACES ELEMENT
33
PUBLIC SPACES ELEMENT
This element identifies areas suitable for development as public space and how such action
compliments other efforts benefiting Downtown. The principal objectives in establishing public
space throughout Downtown are to provide architectural contrast, enhance the pedestrian
experience, and provide opportunities for outdoor recreation and relaxation. An additional benefit
occurs through use of these spaces for community events such as craft fairs, farmer’s markets and
specialized exhibits. Public spaces do not need to be large or expensive to serve the purpose. The
pocket park on Main Street, the Mill Race overlook at the Depot, and the fountain in front of City
Hall are examples of effective use of relatively small areas. Other areas that should be considered
for use as public space include the Mill Race adjoining the Springfield Station, portions of the Booth-
Kelly site including the planned Booth-Kelly Natural Area Park, the public parking lot adjoining the
south side of City Hall, and some portion of the Justice Center development area.
The continued and expanded use of public buildings for community events is another way of
bringing people to the Downtown. Springfield City Hall, Willamalane Adult Activity Center, the
Springfield Museum, and the Depot are examples of buildings that provide meeting space for the
public and which are strategically located throughout the Downtown. Encouraging outside groups
to reserve these facilities introduce visitors to the various shops, restaurants and businesses
Downtown that might otherwise seldom be considered for patronage by people from out of the area.
POLICIES
(Ordinance 6148, adopted in 2005, amended this section to add policies 1 through 4. Based on the
staff report and text amendments provided with the ordinance, it was unclear whether the policies
currently listed as 5 through 7 should remain or be removed.)
1) The City shall encourage the development and use of sites throughout Downtown for
displays, exhibits, festivals, and other events of public interest.
2) The City and Willamalane shall continue to explore the creation and development of public
space improvements in the Downtown including a Downtown overlook and improved
pedestrian access to Island Park, the Mill Race, and the historic Briggs Ferry Landing.
3) The City shall endeavor to maintain funding for maintenance programs on Downtown
streets, sidewalks, and City-owned public spaces.
4) The City, in cooperation with downtown businesses, should identify funding for, design, and
construct a New Main Street plaza at the location of the parking lot on the south side of City
Hall. The plaza would serve as the primary civic gathering public space in the core of the
downtown. The design would explore whether it should be a dual use as both parking and
plaza, or be converted to all plaza. The long-term vision for this space would include
reconstruction of the south side of City Hall to complement the plaza.
5) Willamalane, SDA and the City shall work with the property owners to use vacant land for
temporary or permanent park and open space use.
6) The City should pursue improved maintenance of sidewalks in the Downtown.
Implementation
a. Increase enforcement of City Code (Sec. 2-7-4) which requires landowners to
maintain sidewalks adjacent to their property.
b. The City and SDA should study the need and feasibility of a sidewalk maintenance
assessment district within the Downtown.
Exhibit E, Page 10 of 11
Attachment 1 Page 137 of 169
DOWNTOWN REFINEMENT PLAN PUBLIC SPACES ELEMENT
34
7) The City and SDA shall encourage a variety of street activities in the Downtown area.
Implementation
a. Continue support of the Farmers Market.
b. Re-examine policies dealing with street vendors.
c. The City shall examine the need and methods of instituting a program which would
regulate loitering and transient traffic in the Downtown area.
Exhibit E, Page 11 of 11
Attachment 1 Page 138 of 169
1
Exhibit F
Springfield Development Code Amendments
Amendments to the following Springfield Development Code (SDC) Sections are shown in
track changes on the following pages:
2.1.110 Purpose.
The regulations contained in this code are intended to ensure that development is:
(A) Sited on property zoned in accordance with the applicable Springfield
Comprehensive Plan Map Metro Plan diagram and/or applicable Refinement Plan
diagram, Plan District map, and Conceptual Development Plan;Plan.
3.2.105 Base Land Use Districts Established.
The Base Land Use Districts implement policies of the Metro Plan, Springfield
Comprehensive 2030 Refinement Plan and any applicable refinement plan or plan
district; regulate the use of land, structures, and buildings; and protect the public health,
safety, and welfare. The following Base Land Use Districts are established consistent
with applicable Metro Plan and Springfield Comprehensive 2030 Refinement Plan
designations:
Section Base Land Use District Name Springfield Comprehensive Metro Plan Designation
3.2.200 Residential Land Use Districts
R-1 Low Density Residential
R-2 Medium Density Residential
R-3 High Density Residential
3.2.300 Commercial Land Use Districts
NC Neighborhood Commercial Neighborhood Commercial Facilities(1)
CC Community Commercial Community Commercial Centers
MRC Major Retail Commercial Major Retail Center
GO General Office Community Commercial Center, & Major Retail
Commercial Center, General Office
3.2.400 Industrial Land Use Districts
CI Campus Industrial Campus Industrial
LMI Light-Medium Industrial Light Medium Industrial
HI Heavy Industrial Heavy Industrial
SHI Special Heavy Industrial Special Heavy Industrial
3.2.500 MS Medical Services District (2)
Exhibit F, Page 1 of 15
Attachment 1 Page 139 of 169
2
3.2.600 Mixed Use Districts (3)
Mixed Use Plan Designations (4) MUC Mixed Use Commercial
MUE Mixed Use Employment
MUR Mixed Use Residential
3.2.700 PLO Public Land and Open Space Public Land and Open SpaceSemi-Public
3.2.800 QMO Quarry and Mining Operations Sand and Gravel
3.2.900 Agriculture—Urban Holding Area (AG) Urban Holding Area-Employment (UHA-E), Natural
Resource (NR)
(1) Low, Medium, and High Density Residential designations.
(2) Medium and, High Density Residential, Community Commercial Center,; Major
Retail Center, and various Mixed Use designations identified in refinement plans.
(3) See also SDC 3.4.245 for additional Mixed-Use Districts specific to Glenwood. See
SDC 3.4.300 for Booth-Kelly Mixed Use Plan District specific to Downtown.
(4) The multiple variations of Mixed Use plan designation names are not captured in
this table but are shown on the Springfield Comprehensive Plan Map and described in
the Springfield Comprehensive Plan Land Use Element and applicable refinement
plans. Variations of Mixed Use plan designations may align with other land use districts
as noted in applicable refinement plans.
3.2.605 Establishment of Mixed-Use Zoning Land Use Districts.
The following mixed-use zoning land use districts are established to implement areas
designated Mixed-Use by the Springfield Comprehensive Plan MapMetro Plan, on
adopted refinement plans, specific area plans and specific development plan diagrams
and along transportation corridors designated for commercial development:
3.2.705 Establishment of the Public Land and Open Space (PLO) District.
(B) The PLO District shall must also be permitted on properties designated other
than Public Land and Open Space Semi-Public as specified in the Springfield
Comprehensive Metro Plan, a refinement plan, or plan district.
3.2.925 Standards for Interim Development.
(E) (1) Exemption: Land divisions that create lots/parcels for the purpose of
establishing a Natural Resource or Public Land and Open Space Public/Semi-
Exhibit F, Page 2 of 15
Attachment 1 Page 140 of 169
3
Public Parks and Open Space designation within the floodway, wetland or riparian
resource portions of the site may create lots/parcels less than 20 acres within the
Natural Resource or Public Land and Open Space Public/Semi-Public Parks and Open
Space designation portion of the parent lot/parcel.
3.2.930 Planning Requirements Applicable to Zoning Map Amendments.
In addition to the standards, procedures and review criteria in SDC 5.22.100 applicable
to Zoning Map Amendments, Table 1 provides an overview of the planning procedures
required prior to rezoning land from Agriculture —Urban Holding Area (AG) to urban
employment zoning land use districts designations (e.g., Employment, Employment
Mixed Use, Campus Industrial, or Industrial). Table 1 shows both City and Owner-
initiated planning processes.
Table 1. Pre-Development Approval Process Steps—Urban Holding Areas
City-Initiated Planning Process Owner-Initiated Planning Process
1. City prepares Plan Amendment to
address all applicable Statewide Planning
Goals (e.g., amended or new refinement
plan or district plan), Metro Plan and
Springfield Comprehensive Plan policies
and Springfield Development Code
standards.
1. Applicant submits request to City to
initiate amendments to the Transportation
System Plan and Public Facilities and
Services Plan, and other city actions that
may be required prior to plan amendment
approval.
2. City and Lane County approve
Comprehensive Plan Amendment to
amend Metro Plan and Springfield
Comprehensive Plan Map. UHA-E
designation is replaced with employment
plan designations (e.g., Employment,
Employment Mixed Use, Campus
Industrial, or Industrial). AG land use
district zoning remains in effect until
Master Plan and new land use districts
zoning are approved.
2. Applicant prepares and submits Plan
Amendment application to address all
applicable Statewide Planning Goals,
Metro Plan and Springfield
Comprehensive Plan policies, and
Springfield Development Code standards.
Applicant proposes employment plan
designations (e.g., Employment,
Employment Mixed Use, Campus
Industrial, or Industrial).
3. City prepares and approves Zoning
Map Amendment to apply new land use
districts (e.g., Industrial, Campus
Industrial, Employment Mixed Use, or
Employment). Land is planned and zoned
and eligible for annexation.
3. City and Lane County approve Plan
Amendment to amend Metro Plan and
Springfield Comprehensive Plan Map.
UHA-E designation is replaced with
employment plan designations (e.g.,
Employment, Employment Mixed Use,
Campus Industrial, or Industrial). AG
zoning land use district remains in effect
until Master Plan and new land use
districts zoning are approved.
4. Applicant prepares and submits
Preliminary Master Plan and annexation
4. Applicant prepares and submits
Preliminary Master Plan, proposed land
use district zoning and demonstration of
Exhibit F, Page 3 of 15
Attachment 1 Page 141 of 169
4
applications with demonstration of key
urban service provision.
key urban services provision. Applicant
submits annexation application.
5. City approves Master Plan and
annexation.
5. City approves Master Plan and Zoning
Map Amendment and annexation.
6. Applicant submits Site Plan,
Subdivision, and other applicable
development applications.
6. Applicant submits Site Plan,
Subdivision etc., development
applications.
3.3.1005 Purpose, Applicability and Review.
(A) Purpose. The Nodal Development (ND) Overlay District is established to
support mixed-use pedestrian-friendly development and work in conjunction with
underlying land use districts to implement transportation-related land use policies found
in the Springfield Transportation System Plan, and in the Metro Plan, andthe Springfield
Comprehensive Plan, and Neighborhood Refinement Plans. The ND Overlay District
also supports “pedestrian-friendly, mixed-use development” as outlined in the State
Transportation Planning Rule.
(B) Applicability. The ND Overlay District applies to all property where ND Overlay is
indicated on the Springfield Comprehensive Plan Nodal Overlay Map, unless the
property is an historic property as specified in SDC 3.3.900. The ND Overlay District is
intended to implement the Nodal Development Area Overlay on the Springfield
Comprehensive Plan Map. The ND Overlay District requirements described in this
section apply to the following:
3.2.805 Establishment of the Quarry and Mine Operations (QMO) District.
(B) The QMO District is applied to areas with a Sand and Gravel designation on the
Metro Plan DiagramSpringfield Comprehensive Plan Map.
3.3.810 Applicability.
(A) The provisions of the UF-10 Overlay District apply to all land between
Springfield’s city limits and the Urban Growth Boundary.
(B) EXCEPTIONS:
(1) The provisions of the UF-10 Overlay District shall do not apply to land
designated Public Land and Open Space, Urban Holding Area - Employment, or
Natural Resource Government and Education on the Springfield Comprehensive
Plan Map Metro Plan diagram.
Exhibit F, Page 4 of 15
Attachment 1 Page 142 of 169
5
3.2.815 Review.
(A) To establish a new quarry or mining operation within the Springfield Urban
Growth Boundary, the following are required:
(1) A Metro Comprehensive Plan amendment (Type IV 4 review).
3.4.245 Land UsePlan Designations, Zoning Land Use District Descriptions and
Applicable Overlay Districts.
(A) Applicable Land Use Designations.
(1) The Springfield Comprehensive Metro Plan designations are as follows:
(a) The Multimodal Metro Plan’s Mixed -Use designation applies to all land
within the Glenwood Riverfront.
(b) The Springfield Comprehensive Plan’s Metro Plan’s Nodal
Development Area Overlay designation applies to all land within the Franklin
Riverfront and the land along McVay Highway, north of the Union Pacific
Railroad trestle. The Nodal Development Area Overlay designation supports a
mixed-use, pedestrian-friendly land use pattern that seeks to increase
concentrations of population and employment in well-defined areas with good
transit service, a mix of diverse and compatible land uses, and public and
private improvements designed to be oriented to pedestrians and transit.
(c) The Springfield Comprehensive Plan’s Public Land and Open Space
Metro Plan’s Public and Semi-Public designation includes existing publicly
owned metropolitan and regional scale parks, and publicly and privately owned
golf courses and cemeteries in recognition of their role as visual open space,
as well as some other areas needed for public open space at a non-local level.
This designation may apply to public open spaces envisioned in the Glenwood
Refinement Plan, and/or any necessary major public facility, at such time as
they are placed under public jurisdiction. Until that time, these public open
space areas and future major public facilities, (e.g., a fire station) will retain the
applicable mixed-use designation and zoning described in SDC 3.4.245(A)(2)
and (B). When appropriate, the City or an affected public agency may initiate a
Springfield Comprehensive Plan Map Metro Plan and Zoning Map amendment
for the subject property to be designated Public and Semi-Public and zoned
Public Land and Open Space.
Exhibit F, Page 5 of 15
Attachment 1 Page 143 of 169
6
4.7.210 Residential Uses in Commercial Districts.
(A) In areas designated mixed use oin the Springfield Comprehensive Metro Plan
Map or a Refinement Plan diagram, Plan District map, or Conceptual Development
Plan, multiple unit housing developments shall must meet the standards as specified in
the applicable regulation. MDR R-2 and HDR R-3 District standards contained in this
code shall must be followed where the Springfield Comprehensive Plan Map,a
Refinement Plan diagram, Plan District map, or Conceptual Development Plan does not
specify development standards, or in areas where no applicable regulation has been
prepared.
4.7.385 Multiple Unit Housing (Discretionary Option).
(E) Transition and Compatibility Between Multiple Unit Housing and R-1
District Development. The Approval Authority must find that the development is
located and designed in a manner compatible with surrounding development by creating
reasonable transitions between multiple unit housing and sites and adjacent R-1
districts. This criterion may be met by complying with either subsection (E)(1) or (2)
below or by meeting SDC 4.7.390.
(1) Type 2 Process. Multi-unit developments adjacent to properties designated
in the R-1 district must comply with the transition area and compatibility standards
listed below, unless it can be demonstrated that adjacent R-1 district property is
committed to a non-residential use (e.g., church) that is unlikely to change. In
evaluating the status of an adjacent property, the Metro Springfield Comprehensive
Plan designation must take precedent over the current zone or use.
5.1.630 Final Decision.
(E) For Metro Comprehensive Plan amendments that require adoption by the City,
Eugene and/or Lane County, the City Council decision is final only upon concurrence of
the Lane County Commissioners and the City of Eugene City Council, as appropriate.
Exhibit F, Page 6 of 15
Attachment 1 Page 144 of 169
7
5.12.100 – Land Divisions—Partitions and Subdivisions
5.12.105 Purpose and Applicability.
(A) Purpose. The purpose of the Partition and Subdivision process is to: Facilitate
and enhance the value of development; Maintain the integrity of the City’s watercourses
by promoting bank stability, assisting in flood protection and flow control, protecting
riparian functions, minimizing erosion, and preserving water quality and significant fish
and wildlife areas; Minimize adverse effects on surrounding property owners and the
general public through specific approval conditions; Ensure the provisio n of public
facilities and services; Provide for connectivity between different uses; Utilize alternative
transportation modes including walking, bicycling and mass transit facilities; Implement
the applicable Comprehensive PlansMetro Plan, applicable refinement plans, specific
area plans and specific development plans; Minimize adverse effects on surrounding
property owners and the general public through specific approval conditions; and
Otherwise protect the public health and safety.
5.12.125 Tentative Plan Criteria.
The Director shall must approve or approve with conditions a Tentative Plan application
upon determining that all applicable criteria have been satisfied. If conditions cannot be
attached to satisfy the approval criteria, the Director shallmust deny the application. In
the case of Partitions that involve the donation of land to a public agency, the Director
may waive any approval criteria upon determining the particular criterion can be
addressed as part of a future development application.
(A) The request conforms to the provisions of this code pertaining to lot/parcel size
and dimensions.
(B) The zoning is consistent with the Metro Springfield Comprehensive Plan
diagram Map and/or applicable Refinement Plan diagram, Plan District map, and
Conceptual Development Plan.
5.12.120 Tentative Plan Submittal Requirements.
A Tentative Plan application shallmust contain the elements necessary to demonstrate
that the provisions of this code are being fulfilled.
EXCEPTION: In the case of Partition applications with the sole intent to donate land to
a public agency, the Director, during the Application Completeness Check Meeting, may
waive any submittal requirements that can be addressed as part of a future
development application.
(A) General Requirements.
Exhibit F, Page 7 of 15
Attachment 1 Page 145 of 169
8
(7) Applicable zoning land use districts and the Metro Springfield Comprehensive
Plan designation of the proposed land division and of properties within 100 feet of the
boundary of the subject property.
5.13.100 – Master Plans
5.13.116 Preliminary Master Plan—Application Concurrency.
(A) If the applicant requires or proposes to change the Springfield Comprehensive
Plan Map Metro Plan diagram and/or applicable Comprehensive Plan text, the
applicant shall must apply for and obtain approval of a Springfield Comprehensive Plan
Map Metro Plan diagram and/or Comprehensive Plan text amendment prior to the
submittal of the Preliminary Master Plan application. The Map Metro Plan diagram
and/or text amendment may also require amendment of an applicable refinement plan
diagram or Plan District Map.
5.13.120 Preliminary Master Plan—Submittal Requirements.
The Preliminary and Final Master Plan applications shall be prepared by a professional
design team. The applicant shall select a project coordinator. All related maps,
excluding vicinity and detail maps, shallmust be at the same scale. A Preliminary Master
Plan shallmust contain all of the elements necessary to demonstrate compliance with
the applicable provisions of this code and shallmust include, but not be limited to:
(A) General Submittal Requirements. The applicant shall submit a Preliminary
Master Plan that includes all applicable elements described below and a narrative
generally describing the purpose and operational characteristics of the proposed
development. The narrative shallmust include:
(1) The existing Springfield Comprehensive Metro Plan designation and land use
districtzoning. Where the proposed Master Plan site is within an overlay district, Plan
District or Refinement Plan, the applicable additional standards shallmust also be
addressed;
5.13.125 Preliminary Master Plan—Criteria.
A Preliminary Master Plan shallmust be approved, or approved with conditions, if the
Approval Authority finds that the proposal conforms with all of the applicable approval
criteria.
(A) Plan/Zone Consistency. The existing or proposed land use district zoning shall
must be consistent with the Springfield Comprehensive Plan Map Metro Plan diagram
and/or applicable text. In addition, the Preliminary Master Plan shallmust be in
Exhibit F, Page 8 of 15
Attachment 1 Page 146 of 169
9
compliance with applicable City Refinement Plan, Conceptual Development Plan or
Plan District standards, policies and/or diagram and maps.
(B) Zoning Land Use District Standards. The Preliminary Master Plan shallmust
be in compliance with applicable standards of the specific land use zoning district and/or
overlay district.
(C) Transportation System Capacity. With the addition of traffic from the proposed
development, there is either sufficient capacity in the City’s existing transportation
system to accommodate the development proposed in all future phases or there will be
adequate capacity by the time each phase of development is completed. Adopted State
and/or local mobility standards, as applicable, shallmust be used to determine
transportation system capacity. The Preliminary Master Plan shallmust also comply with
any conditions of approval from a Springfield Comprehensive Plan Map Metro Plan
diagram and/or applicable text amendment regarding transportation and all applicable
transportation standards specified in SDC Chapter 4.
5.14.100 – ComprehensiveMetro Plan Amendments
5.14.105 Purpose.
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional
long-range comprehensive plan public policy document that establishes the broad
framework upon which Springfield, Eugene and Lane County make coordinated land
use decisions. The Springfield Comprehensive Plan is the local long-range
comprehensive plan that establishes city-specific goals, policies, and implementations
strategies to inform land use decisions within the Springfield UGB. Together the Metro
Plan and Springfield Comprehensive Plan serve as the applicable comprehensive plans
for Springfield and will be referenced as “Comprehensive Plan” throughout this section.
While these Plans are Metro Plan is Springfield’s acknowledged land use policy
documents, ithey may require updates or amendments in response to changes in the
law or circumstances of importance to the community. Additionally, these Metro Plans
may be augmented and implemented by more detailed plans and regulatory measures.
5.14.110 Review.
(A) A Development Issues Initiation Meeting is encouraged for citizen initiated
amendment applications.
(B) Metro Comprehensive Plan amendments are reviewed under Type 4 procedures
as specified in SDC 5.1.140.
Exhibit F, Page 9 of 15
Attachment 1 Page 147 of 169
10
(C) A special review, and if appropriate, Comprehensive Metro Plan amendment,
shallmust be initiated if changes in the Metro Plan basic assumptions occur. An
example would be a change in public demand for certain housing types that in turn may
affect the overall inventory of residential land.
5.14.115 ComprehensiveMetro Plan Amendment Classifications.
A proposed Comprehensive Plan amendment to the Metro Plan shall beis a Type 4
Procedure according to the Development Code and is further classified as a Type 1,
Type 2, or Type 3 amendment according to the Metro Plan depending upon the number
of governing bodies (Springfield, Eugene, and Lane County) required to approve the
decision.
(A) A Type 1 amendment requires approval by Springfield only:
(1) Type 1 Springfield Comprehensive Plan Map Diagram amendments include
amendments to the Map Metro Plan Diagram for land inside Springfield’s city limits.
(2) Type 1 text amendments include:
(a) Amendments that are non-site specific and apply only to land inside
Springfield’s city limits;
(b) Site specific amendments that apply only to land inside Springfield’s
city limits;
(c) Amendments to a regional transportation system plan or a regional and
public facilities plan when only Springfield’s participation is required by the
amendment provisions of those plans; and
(d) The creation of new Springfield Comprehensive Metro Plan
designations and the amendment of existing Springfield Comprehensive Metro
Plan designation descriptions that apply only within Springfield’s city limits.
(B) A Type 2 amendment requires approval by Springfield and Lane County only:
(1) Type 2 Diagram Springfield Comprehensive Plan Map amendments
include:
(a) Amendments to the Map Metro Plan Diagram for the area between
Springfield’s city limits and the Plan Boundary; and
(b) An Urban Growth Boundary (UGB) or Metro Plan Boundary
amendment east of I-5 that is not described as a Type 3 amendment.
(2) Type 2 Text amendments include:
Exhibit F, Page 10 of 15
Attachment 1 Page 148 of 169
11
(a) Amendments that are non-site specific and apply only to Lane County
and Springfield;
(b) Amendments that have a site specific application between Springfield’s
city limits and the Plan Boundary; and
(c) Amendments to a jointly adopted regional transportation system plan
or a regional public facilities plan when participation by Springfield and Lane
County is required by the amendment provisions of those plans.
(C) A Type 3 amendment requires approval by Springfield, Eugene, and Lane
County.
(1) Type 3 Diagram Springfield Comprehensive Plan Map amendments
include:
(a) Amendments of the Common UGB along I-5; and
(b) A UGB or Metro Plan Boundary change that crosses I-5.
(2) Type 3 Text amendments include:
(a) Amendments that change a Fundamental Principle as specified in
Metro Plan Chapter II A;
(b) Non-site specific amendments that impact Springfield, Eugene , and
Lane County; and
(c) Amendments to a jointly adopted regional transportation system plan
or a regional public facilities plan, when the participation of Springfield, Eugene
and Lane County is required by the amendment provisions of those plans.
5.14.120 Relationship to Refinement Plans, Special Area Studies, or Functional
Plan Amendments.
(A) In addition to a Metro Plan update, refinement studies may be undertaken for
individual geographical areas and special purpose or functional elements, as
determined appropriate by Springfield, Eugene , or Lane County.
(B) All refinement and functional plans shallmust be consistent with the Metro Plan.
Should inconsistencies occur, the Metro Plan is the prevailing policy document.
(C) When a Metro Comprehensive Plan amendment also requires an amendment of
a refinement plan or functional plan map or diagram map and/or text for consistency,
the Metro Plan, refinement plan and/or functional plan amendments shallmust be
processed concurrently.
Exhibit F, Page 11 of 15
Attachment 1 Page 149 of 169
12
(D) When a Comprehensive Metro Plan amendment is enacted that requires an
amendment to a refinement plan or functional plan map or diagram for consistency, the
Springfield Comprehensive Plan MapMetro Plan Diagram amendment automatically
amends the diagram or map if no amendment to the refinement plan or functional plan
text is involved.
(E) An amendment of the Springfield Comprehensive Plan shall be processed as a
Metro Plan amendment and comply with the approval criteria specified in
SDC 5.14.135.
5.14.125 Initiation.
Metro Comprehensive Plan amendments shallmay be initiated as follows:
(A) A Type 1 amendment may be initiated by Springfield at any time. A property
owner may initiate an amendment for property they own at any time. Owner initiated
amendments are subject to the limitations for such amendments set out in this code
(see also subsection (E)).
(B) A Type 2 amendment may be initiated by Springfield or Lane County at any
time. A property owner may initiate an amendment for property they own at any time.
Owner initiated amendments are subject to the limitations for such amendments set out
in this code and the Lane Code (see also subsection (E)).
EXCEPTION: Consideration of a property owner initiated Metro Comprehensive Plan
amendment (Type 1 and 2) will be postponed by the Director if the proposed
amendment is also part of an existing planned refinement plan or special area study
adoption or amendment process, or one that is scheduled to commence within 3
months of the date of application submittal. The requested Comprehensive Metro Plan
amendment will be considered in the legislative proceedings of the refinement plan or
special area study. If the refinement plan or special area study process has not begun
within the 3-month period, the Comprehensive Metro Plan amendment application
process shall will begin immediately following the 3-month period. The Director may
exempt particular plan amendment applications from postponement under this
subsection and require more immediate review if there is a finding that either there is a
public need for earlier consideration or that review of th e proposed amendment as part
of a general refinement plan or special area study adoption or amendment process will
interfere with timely completion of that process.
(C) A Type 3 amendment may be initiated at any time by Springfield, Eugene, or
Lane County.
(D) Only Springfield, Eugene or Lane County may initiate a refinement plan, a
functional plan, a special area plan, Periodic Review, or a Metro Plan update.
Exhibit F, Page 12 of 15
Attachment 1 Page 150 of 169
13
(E) Metro Comprehensive Plan updates shallmust be initiated no less frequently
than during the state required Periodic Review of the Metro Comprehensive Plan,
although Springfield, Eugene, and Lane County may initiate an update of the Metro Plan
at any time.
5.14.140 Appeals.
Adopted or denied Metro Comprehensive Plan amendments may be appealed to
Oregon Land Use Board (LUBA) or the Department of Land Conservation and
Development (DLCD) according to State law.
5.14.145 Limitation on Refiling.
The City shall will not consider a property owner-initiated Comprehensive Metro Plan
amendment application if a substantially similar or identical plan amendment has been
denied by the City within the year prior to the application date unless the facts forming
the basis for the denial have changed so as to allow approval. The Director shall will
determine whether the proposed amendment is substantially similar or identical after
providing the applicant with an opportunity to comment on the matter in writing.
5.22.110 Review.
Official Zoning Map amendments may be initiated by the Director, the Planning
Commission, the Hearings Official, the City Council or a citizen. Zoning Map
amendments shall will be reviewed as follows:
(A) Legislative Zoning Map amendments involve broad public policy decisions that
apply to other than an individual property owner, generally affecting a large area and/or
require a concurrent Metro Springfield Comprehensive Plan diagram Map amendment
as specified in SDC 5.14.100. Legislative Zoning Map amendments are reviewed using
Type 4 procedure.
(1) Springfield Comprehensive Metro Plan Diagram Map Amendment
Determination. An amendment to the Springfield Comprehensive Metro Plan
diagram Map shall beis required if the proposed Zoning Map amendment is not
consistent with the Springfield Comprehensive Metro Plan diagramMap. Both
amendments may be processed concurrently.
(2) Transportation Planning Rule Compliance. Where applicable, legislative
Zoning Map amendments shall will be reviewed to determine whether the
application significantly affects a transportation facility, as specified in Oregon
Exhibit F, Page 13 of 15
Attachment 1 Page 151 of 169
14
Administrative Rule (OAR) 660-012-0060. In this case a Traffic Impact Study shall
must be submitted as specified in SDC 4.2.105(A)(4).
(B) Quasi-judicial Zoning Map amendments involve the application of existing policy
to a specific factual setting, generally affecting a single or limited group of properties
and may or may not include a Springfield Comprehensive Metro Plan diagram Map
amendment. Quasi-judicial Zoning Map amendments are reviewed using Type 3
procedure, unless a Springfield Comprehensive Metro Plan diagram Map amendment is
required. In this case, the Quasi-judicial Zoning Map amendment will be raised to a
Type 4 review.
5.22.115 Criteria.
(A) Quasi-Judicial Zoning Map Amendments. The Planning Commission or
Hearings Officer may approve, approve with conditions, or deny a quasi-judicial Zoning
Map amendment based upon approval criteria in subsections (C)(1) through (3), below.
The Planning Commission or Hearings Official shall make the final local decision on all
quasi-judicial Zoning Map amendments that do not include a Springfield Comprehensive
Plan Map Metro Plan diagram amendment.
(B) Legislative Zoning Map Amendments and Quasi-Judicial Zoning Map
Amendments Raised to a Type 4 Review. The Planning Commission or Hearings
Official may make a recommendation to the City Council to approve, approve with
conditions or deny Zoning Map amendments and Springfield Comprehensive Plan Map
Metro Plan diagram amendments based upon approval criteria in subsection (C)(1)
through (4), below. The City Council shall make the final local decision on all Zoning
Map amendments involving a Springfield Comprehensive Plan MapMetro Plan diagram
amendment.
(C) Zoning Map Amendment Criteria of Approval.
(1) Consistency with applicable Metro Plan policies, Springfield
Comprehensive Plan policies, and the Springfield Comprehensive Plan MapMetro
Plan diagram;
(2) Consistency with applicable Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans;
(3) The property is presently provided with adequate public facilities, services
and transportation networks to support the use, or these facilities, services and
transportation networks are planned to be provided concurrently with the
development of the property;
Exhibit F, Page 14 of 15
Attachment 1 Page 152 of 169
15
(4) Meet the approval criteria specified in SDC 5.14.100 when involving a
Springfield Comprehensive Plan Map Metro Plan Diagram amendment; and
(5) Compliance with Oregon Administrative Rule (OAR) 660-012-0060, where
applicable.
6.1.110 Meaning of Specific Words and Terms.
Comprehensive Plan. A generalized, coordinated land use map and policy statement
of the governing body of a local government that interrelates all functional and natural
systems and activities relating to the use of lands, including but not limited to sewer and
water systems, transportation systems, educational facilities, recreational facilities, and
natural resources and air and water quality management programs, as further defined
by ORS 197.015(5).
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional
long-range comprehensive plan public policy document that establishes the broad
framework upon which Springfield, Eugene and Lane County make coordinated land
use decisions. The Springfield Comprehensive Plan is the local long-range
comprehensive plan that establishes city-specific goals, policies, and implementations
strategies to inform land use decisions within the Springfield UGB. Together the Metro
Plan and Springfield Comprehensive Plan serve as the applicable comprehensive plans
for Springfield.
Future Development Plan. A line drawing (required for some land division proposals,
or building permits in the City’s urbanizable area) that includes the following information:
the location of future right-of-way dedications based on the Springfield Transportation
System Plan (including the Conceptual Street Map); block length and lot/parcel size
standards of the SDC; a re-division plan at a minimum urban density established in this
code based on the existing Springfield Comprehensive Metro Plan designation of the
property for any lot/parcel that is large enough to further divide; and the location of
hillsides, riparian areas, drainage ways, jurisdictional wetlands and wooded areas
showing how future development will address preservation, protection or removal.
Refinement Plan Diagram. A map contained in a Refinement Plan showing plan
designations that are described in the Refinement Plans and Springfield
Comprehensive Plan Land Use Element and also shown more specific than shown on
the Springfield Comprehensive Plan MapMetro Plan Diagram.
Urban Growth Boundary. A site-specific line that separates urban or urbanizable land
from rural land and which appears on the Springfield Comprehensive Plan MapMetro
Plan Diagram.
Exhibit F, Page 15 of 15
Attachment 1 Page 153 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 1 of 16
STAFF REPORT & FINDINGS
TYPE 4 – LEGISLATIVE AMENDMENTS
Project Name: Springfield Comprehensive Plan Map Clarification Project
Affected Area: Applies to all land within the Springfield Urban Growth
Boundary, which includes land within city limits and
urbanizable land outside city limits
City of Springfield Case Number: 811-23-000129-TYP4
Lane County Case Number: 509-PA23-05396
Joint City of Springfield and Lane County
Planning Commissions Hearing: July 18, 2023
Lane County Board 1st Reading: September 26, 2023
Joint City Council and
Board of County Commissioners Hearing: October 16, 2023
City Council 2nd Reading: November 20, 2023
I. NATURE OF THE AMENDMENTS
The City of Springfield and Lane County seek approval of amendments to adopt a Springfield
Comprehensive Plan Map and Land Use Element that replaces the text in Chapter II-G of the
Eugene-Springfield Metropolitan Area General Plan (Metro Plan) and replaces the plan
designations shown on the Metro Plan Diagram for land within the Springfield Urban Growth
Boundary (UGB). The amendments apply to all land within the Springfield UGB, which includes
land within city limits and urbanizable land outside city limits. This proposal includes amendments
to:
• The Springfield Comprehensive Plan to adopt a Springfield Comprehensive Plan Map and a
Land Use Element and to amend additional text for consistency with this action, as shown
in Exhibit A – Draft Springfield Comprehensive Plan Amendments, which includes:
▪ Exhibit A-1 Springfield Comprehensive Plan Map (The following refinement plan
diagrams are amended as depicted in Exhibit A-1: Downtown, East Kelly Butte,
East Main, Gateway, Glenwood, Mid-Springfield, and Q Street.)
▪ Exhibit A-2 Land Use Element of Springfield Comprehensive Plan
▪ Exhibit A-3 Additional text amendments to Springfield Comprehensive Plan
• The Metro Plan to reflect that the Springfield Comprehensive Plan Map and Land Use
Element will replace the text in Metro Plan Diagram Chapter II-G and replaces the plan
designations shown on the Metro Plan Diagram for lands within the Springfield UGB, as
shown in Exhibit B – Draft Metro Plan Amendments.
• Springfield’s Gateway and Glenwood Refinement Plans text for consistency with adopting
a Springfield Comprehensive Plan Map and Land Use Element, as shown in Exhibit C –
Draft Neighborhood Refinement Plan Amendments for Co-adoption.
Exhibit G Page 1 of 16
Attachment 1 Page 154 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 2 of 16
• Springfield’s East Main, Mid-Springfield, and Q Street Refinement Plans text for
consistency with adopting a Springfield Comprehensive Plan Map and Land Use Element,
as shown in Exhibit D – Draft Neighborhood Refinement Plan Amendments for
Springfield-only adoption.
• Springfield’s Downtown Refinement Plan for consistency with adopting a Springfield
Comprehensive Plan Map and Land Use Element and to clarify amendments adopted by
Ordinance 6148 (2005), as shown in Exhibit E – Draft Downtown Refinement Plan
Amendments (Springfield-only adoption).
• The Springfield Development Code for consistency with adopting a Springfield
Comprehensive Plan Map and Land Use Element, as shown in Exhibit F – Springfield
Development Code Amendments.
• Supporting information summarizing the process and approach to create the Springfield
Comprehensive Plan Map is provided in Attachment 7 – Methodology for Springfield
Comprehensive Plan Map of the October 16, 2023 Springfield City Council and Lane
County Board of Commissioners meeting materials.
II. BACKGROUND
For decades, Eugene and Springfield shared a comprehensive plan: the Eugene-Springfield
Metropolitan Area General Plan (“Metro Plan”). The Metro Plan was created as the sole, long-
range plan (a public policy and vision document) for metropolitan Lane County, including
Springfield and Eugene. Both cities recently established separate urban growth boundaries based
on a determination of land supplies needed to meet anticipated growth. As a result,
comprehensive planning is evolving toward city-specific plans.
As part of continuing to develop the Springfield Comprehensive Plan, a key step is to create a map
that shows existing plan designations for each property in Springfield by interpreting and clarifying
the Metro Plan Diagram, which was adopted most recently as an 11” x 17” paper map in 2004. The
Metro Plan Diagram is a “broad brush,” graphic depiction of projected land uses and major
transportation corridors but does not meet today’s needs for showing which plan designations
apply to each property within the region. Establishing a property-specific Springfield
Comprehensive Plan Map will add greater certainty for understanding the planned land uses. The
map will provide timely, accurate information, ultimately increasing confidence in the land use
process by providing a solid visual understanding of existing plans and policies.
Given the scale of the Metro Plan Diagram, it was not always clear how to precisely draw the line
between differing plan designations (shown as different colors) to develop Springfield’s
Comprehensive Plan Map. Staff began work to clarify boundaries of plan designations by
researching land use records for all properties that appeared to be near another designation on
the Metro Plan Diagram. Staff also verified that the proposed version of Springfield’s
Comprehensive Plan Map reflects neighborhood refinement plans and any changes to the Metro
Plan Diagram adopted since 2004. Staff approached this project with a mix of policy and technical
research and informed conversations to seek input on mapping approaches.
Exhibit G Page 2 of 16
Attachment 1 Page 155 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 3 of 16
The project’s Community Engagement Plan includes strategies for working with stakeholders and
the general public, including outreach to the broader community and to the owners of property
within the areas that require interpretation to seek their knowledge and confirm the
understanding of plan designations for their properties. Interviews with city jurisdictions in
Oregon, discussions with the Technical Resource Group and Project Advisory Committee, and
guidance from Springfield Planning Commission and City Council influenced how the proposed
Springfield Comprehensive Plan Map looks and functions in the context of the proposed Land Use
Element of Springfield’s Comprehensive Plan. Attachment 7 – Methodology for Springfield
Comprehensive Plan Map provides additional detail about the approach to creating a property-
specific Comprehensive Plan Map for Springfield and associated outreach.
The Springfield Comprehensive Plan Map is accompanied by a Land Use Element that transfers the
relevant plan designation descriptions from the Metro Plan with some revisions and updates to
reflect what applies in Springfield. The Land Use Element also includes a goal, policies, and
implementation strategies related to the Springfield Comprehensive Plan Map. To support
establishing a Springfield Comprehensive Plan Map and Land Use Element, related amendments
are included as described in Section I – Nature of the Amendments.
III. PROCEDURAL REQUIREMENTS
The amendments are a Type 4 legislative decision because the amendments apply to all land
within the Springfield UGB, which includes land within city limits and urbanizable land outside city
limits. Under Springfield Development Code (SDC) 5.14.110 and Lane Code 12.300, amendments
to the Metro Plan are reviewed under Type 4 procedures as a legislative action. Under SDC
5.14.120(E), amendments to the Springfield Comprehensive Plan are processed as a Metro Plan
amendment. Metro Plan amendments are further classified into “types” in Metro Plan Chapter IV,
in SDC 5.14.115, and in Lane Code 12.300.010; this is a Type 2 (Type II in Metro Plan and Lane
Code) amendment. The amendments are consistent with Metro Plan Policy IV.7.b and IV.12. As
such, the Type 2 Metro Plan amendments being considered in conjunction with amendments to
Springfield’s Comprehensive Plan require approval by Springfield and Lane County, as they will
apply to all land within the Springfield UGB.
Under SDC 5.6.110, amendments to Refinement Plans and the Development Code text are
reviewed under a Type 4 procedure as legislative actions.
Per SDC 5.1.600 and the urban transition agreement between the City of Springfield and Lane
County, the amendments require a review and recommendation by the Springfield Planning
Commission, and Lane County Planning Commission at Lane County’s discretion, prior to action
being taken by the Springfield City Council and Lane County Board of Commissioners. The Director
for the City of Springfield initiated the amendments on behalf of the City of Springfield as is
allowed under SDC 5.14.125(B) and 5.6.105(B).
The Director must send notice to the Department of Land Conservation and Development (DLCD)
as specified in OAR 660-18-0020. On June 13, 2023, the City submitted a joint City-County “DLCD
Notice of Proposed Amendment” to DLCD in accordance with DLCD submission guidelines via the
FTP website. The notice was mailed 35 days in advance of the first evidentiary hearing as required
by ORS 197.610(1) and OAR 660-018-0020.
Exhibit G Page 3 of 16
Attachment 1 Page 156 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 4 of 16
SDC 5.14.130(A) requires the City to provide notice to other relevant governing bodies. The City of
Eugene and Lane County received notice on June 28, 2023. Springfield is the “home city” for this
amendment. Lane County is included because the amendments apply to unincorporated land
within the Springfield UGB.
SDC 5.1.615 and Lane Code Section 14.060 require advertisement of legislative land use decisions
in a newspaper of general circulation, providing information about the legislative action and the
time, place, and location of the hearing. Notice of the public hearing concerning this matter was
published on Thursday, June 22, 2023 in The Chronicle and on Tuesday, June 27, 2023 in The
Register Guard, advertising the first evidentiary hearing before the joint City of Springfield and
Lane County Planning Commissions on July 18, 2023. Notice of the joint public hearing before the
Springfield City Council and Lane County Board of Commissioners on October 16, 2023 concerning
this matter was published on Thursday, September 21, 2023 in The Chronicle and The Register
Guard. The content of these notices complied with the requirements in SDC 5.1.615 and Lane
Code 14.060 for legislative actions. Notice was also posted in accordance with SDC 5.1.615(B) and
sent to Springfield’s Development Review Committee in accordance with SDC 5.1.615(E). SDC
5.1.615(C) and (D) do not apply to the amendments.
Springfield and Lane County Planning Commissions
The Springfield and Lane County Planning Commissions held a joint public hearing on July 18, 2023
and closed the hearing. One person submitted written testimony prior to the joint Planning
Commission public hearing. Mr. Farrington, a member of the Project Advisory Committee,
encouraged the Planning Commissions to recommend adoption of the amendments and noted
this work will help provide greater clarity to property owners. The Planning Commissions made
recommendations of approval of the amendments to the Springfield City Council and Lane County
Board of Commissioners which are the Approval Authorities for the final local decision.
Springfield City Council and Lane County Board of Commissioners
The Lane County Board of Commissioners conducted a first reading of Lane County Ordinance PA
1390 and Ordinance 23-07 on September 26, 2023. The Springfield City Council and Lane County
Board of Commissioners held a joint public hearing on the amendments on October 16, 2023 and
closed the hearing. This was City Council’s first reading of Springfield’s Ordinance.
IV. APPROVAL CRITERIA & FINDINGS
The amendments to the Metro Plan and Springfield Comprehensive Plan are subject to the same
set of approval criteria, which are referenced below under “Metro Plan & Springfield
Comprehensive Plan Amendments.” The amendments to Springfield’s Downtown, East Main,
Gateway, Glenwood, Mid-Springfield, and Q Street Refinement Plans and to the Springfield
Development Code are subject to a different set of approval criteria listed on page 14 under
“Refinement Plan and Development Code Amendments.”
Findings showing that the amendments meet the applicable criteria of approval appear in regular
text format. Direct citations or summaries of criteria appear in bold italics and precede or are
contained within the relevant findings.
Exhibit G Page 4 of 16
Attachment 1 Page 157 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 5 of 16
METRO PLAN & SPRINGFIELD COMPREHENSIVE PLAN AMENDMENTS
The applicable criteria of approval for amendments to the Metro Plan and the Springfield
Comprehensive Plan are at Springfield Development Code 5.14.135 (Metro Plan Amendments),
and Chapter 12.100.050 (Method of Adoption and Amendment) and 12.300.030 (Metro Plan
Amendment Criteria) of the Lane Code (LC).
SDC 5.14.135 (Metro Plan Amendments)
A Metro Plan amendment may be approved only if the Springfield City Council and other
applicable governing body or bodies find that the proposal conforms to the following criteria:
(A) The amendment shall be consistent with applicable Statewide Planning Goals; and
(B) Plan inconsistency:
(1) In those cases where the Metro Plan applies, adoption of the amendment shall
not make the Metro Plan internally inconsistent.
(2) In cases where Springfield Comprehensive Plan applies, the amendment shall be
consistent with the Springfield Comprehensive Plan.
LC 12.300.030 (Metro Plan Amendment Criteria)
The following criteria will be applied by the Board of Commissioners and other applicable
governing body or bodies in approving or denying a Metro Plan amendment application:
A. The proposed amendment is consistent with the relevant Statewide Planning Goals; and
B. The proposed amendment does not make the Metro Plan internally inconsistent.
CONSISTENCY WITH APPLICABLE STATEWIDE PLANNING GOALS (SDC 5.14.135(A); LC 12.300.030.A)
Statewide Land Use Planning Goal 1: Citizen Involvement
Finding 1: The project’s Community Engagement Plan was the foundation for engaging the
Springfield community and stakeholders in the process of creating the amendments. The
Springfield Committee for Citizen Involvement (CCI) approved the project’s Community
Engagement Plan in March 2022. Community engagement involved a(n):
• Mailing to owners of properties that required research needed to clarify plan designations in:
o Winter 2022: Letter requesting clarifying information during early stages of
property research
o Spring 2023: Postcard announcing the Draft Comprehensive Plan Map was ready
for review and feedback and the multiple options for how to learn more and
provide feedback
• Project webpage that provided background information, announcements of upcoming
meetings along with meeting materials, content from previous meetings, materials for review
(including the draft map), timeline, staff contact information, and ways to connect with
project information in Spanish.
• Project Advisory Committee: This CCI-appointed Committee (June 7, 2022) resulted from
extensive recruitment efforts, such as:
o Direct e-mail announcements and invitations to apply
Exhibit G Page 5 of 16
Attachment 1 Page 158 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 6 of 16
o Announcements on the project webpage, on the homepage on the City’s website,
on the City’s social media platforms, to the Springfield City Club, in the Springfield
Chamber of Commerce Bottom Line newsletter, and in a news release
o Informational flyers around City Hall and other locations around town
The Committee was made up of Springfield residents, Springfield property and business
owners/people with other experience working in Springfield (including private-sector land
use planning experience), volunteer experience in the region, and more. The Committee
met five times and received e-mail updates between meetings and after its last meeting.
Meetings were open to the public to observe and were advertised on the project webpage
and City Events calendar.
• Technical Resource Group comprised of the Springfield Utility Board, Springfield Public
Schools, Willamalane Park and Recreation District, Lane County, Lane Council of Governments,
City of Eugene, and the Oregon Department of Land Conservation and Development. The
Group met four times and received e-mail updates after meetings.
• Online open house, which ran from April 18 through May 11, 2023. The online open house
materials included the draft maps (PDF and web-based interactive version), a storyboard
presentation to give context for the draft materials, and comment form.
• In-person open house, held on May 4, 2023, which provided opportunities for participants to
view and comment on the printed and web-based/interactive versions of the draft map, to
speak with the project team, gather printed project information, use a supervised activity
station for children, and have light refreshments.
• Set of Frequently Asked Questions with answers (also translated into Spanish). These
questions and answers appeared on the webpage and were available in printed format at the
in-person open house.
• Work sessions with Planning Commission on November 1, 2022 and April 18, 2023.
• Work session Council on November 28, 2022.
CONCLUSION: Accordingly, the process used to inform the amendments meets Goal 1.
Statewide Land Use Planning Goal 2: Land Use Planning
Finding 2: Goal 2, in part, requires Springfield to have and follow a comprehensive land use
plan and implementing regulations. The Metro Plan, Springfield Comprehensive Plans,
Springfield’s neighborhood refinement plans, and Springfield Development Code support this
required planning framework. The Oregon Land Conservation and Development Commission
previously acknowledged each of these components of Springfield’s land use planning program as
consistent with Oregon’s Statewide Land Use Planning Goals.
Finding 3: The actions with this adoption package include amendments to existing,
acknowledged plans and associated regulations by way of amendments to the Metro Plan,
Springfield Comprehensive Plan, Springfield’s neighborhood refinement plans, and the Springfield
Development Code. The amendments include replacing the plan designations shown on the Metro
Plan Diagram, which is the existing regional comprehensive plan map, with a Springfield
Comprehensive Plan Map that shows property-specific plan designations in the Springfield UGB.
Finding 4: The amendments to the Metro Plan’s text are limited to clarifying that Chapter II-
G and the designations shown on the Metro Plan Diagram no longer apply to Springfield, to
Exhibit G Page 6 of 16
Attachment 1 Page 159 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 7 of 16
amending additional text throughout the Metro Plan for consistent referencing of applicable
planning documents (i.e., the Springfield Comprehensive Plan where appropriate), explaining the
Willamette River Greenway boundary as shown on Springfield’s Comprehensive Plan Map, and to
explaining how to use the Metro Plan and/or Springfield Comprehensive Plan and their
relationship in the context of land use planning in Lane County.
Finding 5: The amendments to the Metro Plan Diagram are to no longer show land use
designations within Springfield’s portion of the Metro Plan Boundary east of Interstate 5. As such,
the Metro Plan Diagram amendments do not involve redesignating land.
Finding 6: The amendments to the Springfield Comprehensive Plan add a Land Use Element
(chapter), reference the Springfield Comprehensive Plan (as opposed to the Metro Plan) where
appropriate throughout the Plan, and add a Comprehensive Plan Map to replace the Metro Plan
Diagram.
Finding 7: The text of the Land Use Element captures existing text from the previously
adopted and acknowledged Metro Plan document and describes the relationship between the
various planning documents that apply to making decisions about land use in Springfield. As such,
the land use planning framework in Springfield will remain materially unchanged as a result of the
amendments though the resources used to refer to properties’ designations and to the
designations’ meanings will differ. The text amendments:
• Transfer the relevant descriptions of Plan designations from the Metro Plan to the
Springfield Comprehensive Plan with some revisions and updates to reflect what applies
to Springfield, and in so doing:
o Remove language that does not apply to Springfield (e.g., references to Eugene)
o Revise the transferred Metro Plan text for Nodal Development, Mixed Use, Public
Land and Open Space, and Residential designations to reflect amendments and
clarify how they apply in Springfield
• Add a section that clarifies the relationship of the Springfield Comprehensive Plan to the
Metro Plan, functional plans, and Springfield’s neighborhood refinement plans; and
• Identify goals, policies, and implementation strategies within the Land Use Element
Finding 8: The Springfield Comprehensive Plan Map accompanies the previously described
text changes. The Map shows property lines based on tax lot lines; consolidates the Government
and Education, Parks and Open Space, and other similar designations into one designation: Public
Land and Open Space; and consistently shows Nodal Development as an overlay designation as
opposed to a base designation and/or overlay designation depending on the location. These
amendments do not materially change how land can be used or developed in Springfield and are a
result of the work that would otherwise be necessary to interpret plan designations for specific
properties where ambiguity remains on the Metro Plan Diagram in the case of the Metro Plan
Diagram continuing to apply to Springfield. Attachment 7 – Methodology for Springfield
Comprehensive Plan Map describes the method the City used to interpret and apply existing
designations to the Comprehensive Plan Map.
Finding 9: The actions described in these Goal 2 findings align with Statewide Planning Goal
2, as they: (1) identify the issues of determining appropriate plan designations for specific
properties where such determination is based on a generalized diagram that is not property
Exhibit G Page 7 of 16
Attachment 1 Page 160 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 8 of 16
specific and that is unaccompanied by policy that would enable a solid understanding of how land
can be used in Springfield’s urbanized and urbanizable areas; (2) create solutions to address these
issues as presented in the policies and implementation strategies of Exhibit A-2 Land Use Element
of Springfield Comprehensive Plan as based on stakeholder input as described in the findings
under Statewide Land Use Planning Goal 1; and, (3) make use of an easier-to-read Comprehensive
Plan Map a reality (Exhibit A-1 Springfield Comprehensive Plan Map).
Finding 10: The amendments do not elicit compliance with the remaining aspects of Goal 2, as
they do not: (1) include taking an exception to Goal 2; and, (2) involve changes to the Springfield
Development Code that create new regulations consistent with Goal 2, Part III, Sections F.1 and
F.2 as demonstrated in the findings.
CONCLUSION: Accordingly, the amendments meet Statewide Planning Goal 2.
Statewide Land Use Planning Goals 3 & 4: Agricultural and Forest Lands
Finding 11: These Goals apply to land outside of Springfield’s UGB, and as such, do not apply
to the amendments.
Statewide Land Use Planning Goal 5: Natural Resources, Scenic and Historic Areas, and Open Spaces
Finding 12: Goal 5 does not apply to the map and text amendments to the Metro Plan and
Springfield Comprehensive Plan. Springfield conducts its inventories of its natural, scenic and
historic areas, and open space resources through separate processes and protects the significant
resources through programs. These features are shown on specific maps, which have since been
adopted via ordinance and acknowledged by the Oregon Land Conservation and Development
Commission. The amendments do not include any changes to the adopted and acknowledged
inventories or their protection. The waterbodies shown on the Springfield Comprehensive Plan
Map (Exhibit A-1) are for illustrative purposes to orient map users to Springfield’s geography. The
text amendments to the Metro Plan and Springfield Comprehensive Plan do not relate to Goal 5.
Statewide Land Use Planning Goal 6: Air, Water and Land Resources Quality
Finding 13: Goal 6 does not apply to the map and text amendments to the Metro Plan and
Springfield Comprehensive Plan. The amendments do not alter the City’s acknowledged land use
programs regarding the control of pollution to protect the quality of Springfield’s air, water, and
land resources and do not change the uses allowed to develop—whether outright or conditionally.
The water resources, some of which are water quality limited watercourses, shown on the
Springfield Comprehensive Plan Map (Exhibit A-1) are for illustrative purposes to orient map users
to Springfield’s geography. The amendments do not alter the Regional Transportation Plan or the
City’s acknowledged Transportation System Plan, the policies of which can influence air quality.
Statewide Land Use Planning Goal 7: Areas Subject to Natural Hazards
Finding 14: Goal 7 does not apply to the map and text amendments to the Springfield
Comprehensive Plan and the Metro Plan as shown in Exhibits A and B. The amendments do not
Exhibit G Page 8 of 16
Attachment 1 Page 161 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 9 of 16
alter the City’s acknowledged land use programs regarding potential landslide areas and flood
management protections.
Statewide Land Use Planning Goal 8: Recreational Needs
Finding 15: Goal 8 does not apply to the amendments. The Recreation Element of the
Springfield Comprehensive Plan and the Parks and Recreation Facilities Element of the Metro Plan
guide the implementation of Springfield’s recreational needs. Willamalane Park and Recreation
District’s Comprehensive Plan is the Recreation Element of Springfield’s Comprehensive Plan.
Changes to Willamalane Park and Recreation District’s Comprehensive Plan and to the text of
Metro Plan’s Parks and Recreation Facilities Element are not part of the amendments.
Statewide Land Use Planning Goal 9: Economic Development
Finding 16: The Springfield Comprehensive Plan amendments (also referred to as “Springfield
2030 Comprehensive Plan” amendments)—adopted in 2016 as Springfield Ordinance 6361 and
Lane County Ordinance PA 1304—expanded the Springfield UGB and Metro Plan boundary. This
UGB expansion added land intended to allow Springfield to meet its long-term needs for
employment based on the findings of the Commercial and Industrial Buildable Lands Inventory.
Springfield assigned an Urban Holding Area – Employment (UHA-E) plan designation on a
property-specific basis within the expansion area. The Oregon Land Conservation and
Development Commission approved the expansion and corresponding Plan amendments in March
2019 (Approval Order 19-UGB-001900), thereby acknowledging the amendments. The UHA-E
designation will remain in effect until the appropriate permanent employment designation is
adopted through a City-initiated planning process or an owner-initiated plan amendment process,
which is not part of this present application. The amendments to the Metro Plan and Springfield
Comprehensive Plan retain the property-specific, interim employment designations in the UGB
expansion area and do not change the acreage available for employment land identified in the
Commercial and Industrial Buildable Lands Inventory in Springfield’s UGB, including land within
city limits. The amendments do not fundamentally change the goals and policies applicable to
economic development in Springfield, which are the policies in the Economic Element of the
Springfield Comprehensive Plan. Accordingly, the City remains in compliance with Goal 9.
Statewide Land Use Planning Goal 10: Housing
Finding 17: In August 2011, the Oregon Land Conservation and Development Commission
acknowledged the Springfield 2030 Refinement Plan Residential Land Use and Housing Element
(“Housing Element”). This Element is part of the Springfield Comprehensive Plan. The
amendments do not involve substantive changes to the acknowledged goals and policies of the
Housing Element of Springfield’s Comprehensive Plan. This Element supplements and refines the
Residential Land Use and Housing Element of the Metro Plan, which also applies to land use
planning for housing in Springfield. The amendments do not change the goals and policies therein.
The amendments to the Metro Plan Diagram and to the Springfield Comprehensive Plan for
adoption of a Springfield Comprehensive Plan Map do not redesignate property and therefore do
not affect the Buildable Lands Inventory. Accordingly, the City remains in compliance with Goal 10.
Exhibit G Page 9 of 16
Attachment 1 Page 162 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 10 of 16
Statewide Land Use Planning Goal 11: Public Facilities and Services
Finding 18: Goal 11 does not apply to the amendments. Goal 11 requires Springfield to plan
and develop a timely, orderly, and efficient arrangement of public facilities and services to serve
as a framework for urban and rural development. Pursuant to OAR 660-011-0020(2), a public
facility plan must identify significant public facility projects which are to support the land uses
designated in the acknowledged comprehensive plan. The Eugene-Springfield Metropolitan Area
Public Facilities and Services Plan (PSFP) and the Springfield 2035 Transportation System Plan
(TSP) are the City’s acknowledged public facilities and transportation system plans that inform
infrastructure investments (i.e., water, stormwater, wastewater, transportation, and electricity) in
Springfield. The amendments do not entail changes to the acknowledged TSP or PFSP, nor do they
change the acknowledged comprehensive plans (Metro Plan and Springfield Comprehensive Plan)
in ways that would require additional or different public facilities projects in the PSFP or TSP. The
Goal 12 findings below further address transportation planning.
Statewide Land Use Planning Goal 12: Transportation
Finding 19: The Transportation Planning Rule (OAR 660-012-0060) implements Goal 12. OAR
660-012-0060 requires a local government to establish mitigation measures if an amendment to
an acknowledged functional plan, comprehensive plan, or land use regulation would “significantly
affect an existing or planned transportation facility.” Subsections (1)(a)-(c) determine whether the
requested amendments to the Metro Plan and Springfield Comprehensive Plan significantly affect
a transportation facility.
Finding 20: An amendment to an acknowledged comprehensive plan “significantly affects” a
transportation facility under Subsection 1(a) if it: “Change[s] the functional classification of an
existing or planned transportation facility (exclusive of correction of map errors in an adopted
plan).” The amendments do not change any functional classification under OAR 66-012-0060(1)(a)
as shown in Exhibits A and B.
Finding 21: An amendment to an acknowledged comprehensive plan “significantly affects” a
transportation facility under Subsection 1(b) if it: “Change[s] standards implementing a functional
classification system.” The amendments do not change the City’s standards for implementing its
functional classification system under OAR 66-012-0060(1)(b) as shown in Exhibits A and B.
Finding 22: Under Subsection (1)(c), an amendment to an acknowledged comprehensive plan
“significantly affects” a transportation facility if it: (A) results in types or levels of travel or access
inconsistent with the functional classification of a transportation facility; (B) degrades the
performance of a transportation facility such that it would not meet performance standards
identified in the TSP or comprehensive plan; or (C) degrades the performance of a transportation
facility that is otherwise projected to not meet the performance standards in the TSP or
comprehensive plan. To determine whether the amendments “significantly affect” a
transportation facility within the meaning of (1)(c), a local government should compare the most
traffic-generative use reasonably allowed under current land use requirements with the most
traffic-generative use reasonably allowed under the amendments. The amendments to the Metro
Plan and Springfield Comprehensive Plan do not change the uses that the Springfield Development
Code allows outright, conditionally allows, or prohibits. The amendments do not change the most
Exhibit G Page 10 of 16
Attachment 1 Page 163 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 11 of 16
traffic-generative uses reasonably allowed. Accordingly, the amendments do not result in any of
the effects described under (A)-(C).
OAR chapter 660, Division 12 includes provisions adopted under the “Climate Friendly and
Equitable Communities” rules adopted and certified effective on August 17, 2022, as amended by
temporary rules effective May 12, 2023 through November 7, 2023. These provisions are either
not yet operative for the City of Springfield under OAR 660-012-0012 or apply only upon
amendment to the Springfield Transportation System Plan. Amendments to Springfield’s
Transportation System Plan do not accompany the subject amendments, and therefore the
remaining provisions of OAR chapter 660, Division 12, are not applicable.
CONCLUSION: The amendments do not “significantly affect” an existing or planned transportation
facility under OAR 660-012-0060(1)(a), (b), or (c) and thus comply with OAR 660-012-0060 and
Goal 12 requirements.
Statewide Planning Goal 13: Energy Conservation
Finding 23: Goal 13 does not apply to the amendments. The City’s acknowledged regulations
that implement Goal 13 remain unaffected by the amendments. The amendments do not entail
proposed development and do not change the types of development allowed outright or
conditionally.
Statewide Planning Goal 14: Urbanization
Finding 24: The Oregon Land Conservation and Development Commission acknowledged
Springfield’s UGB expansion in 2019. The diagram and map amendments show the UGB as
previously acknowledged in 2019.
Finding 25: The 2019 acknowledgement brought land into Springfield’s expanded UGB that
was rurally designated by Lane County to new designations administered by Springfield:
Public/Semi-Public, Urban Holding Area- Employment, and Natural Resource. Springfield applied
these new designations on a property-specific basis. The diagram and map amendments retain the
property-specific designations, with the exception of the Public-Semi-Public designation—the
function of which is fundamentally unchanged. The Public/Semi-Public designation acknowledged
in 2019 is to be named: Public Land and Open Space to provide a consistent naming convention
throughout Springfield and to produce a map that is easier to read. The text amendments to the
Springfield Comprehensive Plan to rename Public/Semi Public to Public Land and Open Space will
not result in additional changes to the Springfield Comprehensive Plan or Metro Plan regarding
the purpose or outcomes of this designation. As shown in Exhibit B, Metro Plan Chapter II-G:
Metro Plan Diagram, will no longer apply to Springfield.
Finding 26: The designations of remaining areas within Springfield’s UGB (including property
within the city limits) are more clearly represented with property lines on the Springfield
Comprehensive Plan Map as compared to the generalized, large-scale Metro Plan Diagram. As
previously noted, the amendments to the Springfield Comprehensive Plan Map depict the Metro
Plan designations at a more precise scale as described in Attachment 7 – Methodology for
Springfield Comprehensive Plan Map and amend the Metro Plan to no longer show Plan
Exhibit G Page 11 of 16
Attachment 1 Page 164 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 12 of 16
designations within the Springfield UGB (coterminous with the Metro Plan boundary) as shown in
Exhibit B. These actions do not affect Springfield’s approach to using land efficiently within its UGB
through orderly and logical growth patterns as specified by Goal 14.
CONCLUSION: Accordingly, the City remains in compliance with Goal 14.
Statewide Planning Goal 15: Willamette River Greenway
Finding 27: Goal 15 does not apply to the amendments. The Metro Plan Diagram has
previously shown the Willamette River Greenway (“Greenway”) boundary, and the Greenway
boundary will continue to be shown on the Springfield Comprehensive Plan Map in its existing
location (Exhibit A-1). The Springfield Comprehensive Plan Map and associated amendments do
not change to the applicability of the Greenway boundary as reflected in the previously
acknowledged Metro Plan Diagram. Additionally, the amendments do not entail development
activities within the Greenway boundary.
Statewide Planning Goals 16-19: Estuarine Resources, Coastal Shorelands, Beaches and Dunes, Ocean
Resources
Finding 28: These Goals do not apply to the amendments. Land within Springfield’s UGB (land
within city limits and the urbanizable land outside city limits) is outside of Oregon’s coastal areas
to which Goals 16-19 apply.
CONCLUSION: The amendments to the Metro Plan and Springfield Comprehensive Plan are
consistent with the applicable Statewide Land Use Planning Goals based on the aforementioned
findings and thus meet the criteria at SDC 5.14.135 and LC 12.300.030.
ADOPTION OF THE AMENDMENT SHALL NOT MAKE THE METRO PLAN OR SPRINGFIELD
COMPREHENSIVE PLAN INTERNALLY INCONSISTENT (SDC 5.14.135(B); LC 12.300.030.B)
Finding 29: The Metro Plan anticipated Springfield would continue creating aspects of its land
use planning program on a city-specific basis to reflect the unique needs of Springfield. The Metro
Plan also anticipated the need for comprehensive land use planning to occur based on property-
specific maps years before Springfield began work to create its Comprehensive Plan Map.
Precedent for the amendments exists in the introductory text and explanatory text in Chapter II-G
of the Metro Plan as described on pages iii-v, II-G-2—II-G-3, and IV-5 Policy 10.
Finding 30: As summarized, pages iii through v state:
ORS 197.304, adopted by the Oregon Legislature in 2007, requires Eugene and Springfield
to divide the metropolitan UGB into two city-specific UGBs… The ORS 197.304 mandates
are being carried out by the two cities and Lane County through a series of incremental
actions over time rather than through a Metro Plan Update process. Some of the land use
planning that has historically been included in the Metro Plan will, instead, be included in
the cities’ separate, city-specific comprehensive plans… The three jurisdictions1 anticipate
1 Lane County, Springfield, and Eugene
Exhibit G Page 12 of 16
Attachment 1 Page 165 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 13 of 16
that the implementation of ORS 197.304 will result in a regional land use planning
program that continues to utilize the Metro Plan and regional functional plans for land use
planning responsibilities that remain regional in nature. City-specific plans will be used to
address those planning responsibilities that the cities address independently of each
other… ORS 197.304 allows the cities to adopt local plans that supplant the regional
nature of the Metro Plan “[n]notwithstanding . . . acknowledged comprehensive plan
provisions to the contrary.” As these local plans are adopted, Eugene, Springfield and Lane
County wish to maintain the Metro Plan as a guide that will direct readers to applicable
local plan(s) when Metro Plan provisions no longer apply to one or more of the
jurisdictions. Therefore, when Eugene or Springfield adopts a city-specific plan to
independently address a planning responsibility that was previously addressed on a
regional basis in the Metro Plan, that city will also amend the Metro Plan to specify which
particular provisions of the Metro Plan will cease to apply within that city.
Finding 31: Upon reference to the instances where the Metro Plan Diagram is “parcel-
specific” as described on Metro Plan page II-G-22,” page II-G-3 of the Metro Plan states, in part:
There is a need for continued evaluation and evolution to a parcel-specific diagram.
Finding 32: Policy IV.10 on page IC-5 states, in part:
… Until a city has adopted a city-specific comprehensive plan that explicitly supplants the
relevant portion of the Metro Plan, that city’s refinement and functional plans must be
consistent with the Metro Plan. After a city has adopted a city-specific comprehensive plan
that explicitly supplants the relevant portion of the Metro Plan, that city’s refinement and
functional plans must be consistent with its city specific comprehensive plan (instead of the
Metro Plan).
Finding 33: The primary purpose of amending the Metro Plan is to continue Springfield’s
evolution to a city-specific plan where appropriate. Planning actions in response to ORS 197.304
have included Springfield’s acknowledged Residential Land Use and Housing Element, Economic,
Urbanization, and Transportation Elements of its Comprehensive Plan. Springfield’s creation of a
property-specific Comprehensive Plan Map is the next step so that planning for future residential,
economic, and other needs is based on clear information about Springfield’s existing conditions.
The necessary amendments to the Metro Plan, as previously described under Goal 2 findings and
incorporated herein by reference, are for consistent and appropriate referencing and use of terms
(Exhibit B). While the plan designations within Springfield’s segment of the Metro Plan boundary
east of Interstate 5 no longer apply to Springfield, the Metro Plan designations were transferred to
Springfield’s Comprehensive Plan Map and have been interpreted for specificity where needed
(Attachment 7 – Methodology for Springfield Comprehensive Plan Map). The remaining policy
components of the Metro Plan will not conflict with this approach given the amendments do not
involve new Metro Plan findings, new goals or policies in response to those findings, or modified
text to existing findings, goals, or policies beyond clarifying where the Springfield Comprehensive
Plan now applies.
2 Parcels shown on the Metro Plan Diagram with a clearly identified Plan designation (i.e., parcels that do not border
one plan designation); lands outside the UGB within the Metro Plan Boundary (though this instance no longer applies
to Springfield); parcels with parcel-specific designations adopted through the Plan amendment process
Exhibit G Page 13 of 16
Attachment 1 Page 166 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 14 of 16
Finding 34: The primary purpose of amending the Springfield Comprehensive Plan is to add a
Comprehensive Plan Map and accompanying Land Use Element, which establishes Springfield’s
first property-specific Comprehensive Plan Map. The text supports the Map by describing how to
use and interpret it. The amendments do not remove or create new goals, policies, or
implementation strategies or actions for the Springfield Comprehensive Plan aside from the new
Land Use Element. The amendments to the existing, adopted and acknowledged chapters of the
Springfield Comprehensive Plan are administrative in nature and support consistent and
appropriate use of plans and application of policy, as they reference which land use plan applies
when reading a policy (e.g., Metro Plan, or Springfield Comprehensive Plan, or both).
CONCLUSION: Based on the preceding findings, the amendments do not make the Metro Plan or
Springfield Comprehensive Plan internally inconsistent. The criteria at SDC 5.14.135(B) and LC
12.300.030.B are met.
REFINEMENT PLAN AND DEVELOPMENT CODE AMENDMENTS
The applicable approval criteria for the amendments are at:
SDC 5.6.115 (Refinement Plans, Plan Districts and the Development Code—Adoption or
Amendment):
(A) In reaching a decision on the adoption or amendment of refinement plans and this code’s
text, the City Council shall adopt findings that demonstrate conformance to the following:
(1) The Metro Plan and Springfield Comprehensive Plan;
(2) Applicable State statutes; and
(3) Applicable State-wide Planning Goals and Administrative Rules.
(B) Applications specified in SDC 5.6.105 may require co-adoption by the Lane County Board
of Commissioners.
CRITERION #1: SDC 5.6.115(A)(1): CONFORMANCE WITH THE METRO PLAN AND SPRINGFIELD
COMPREHENSIVE PLAN
Finding 1: The amendments to the neighborhood refinement plans and Springfield
Development Code are made in direct response to Criterion 5.6.115(a)(1) to align the text of
affected refinement plans and Code to the Metro Plan and/or Springfield Comprehensive Plan
where applicable. The Springfield Comprehensive Plan itself is the reason for the resultant
amendments to the Springfield Development Code, and as demonstrated in the Findings under
the approval criteria at SDC 5.14.135(B) and LC 12.300.030.B, incorporated herein by reference,
precedent for the subject amendments exists in the Metro Plan.
Finding 2: The amendments to Springfield’s neighborhood refinement plans are limited to
those described in Exhibits C, D, and E. Referencing the Springfield Comprehensive Plan instead of,
or in addition to, the Metro Plan where appropriate and correctly referencing designation names
to align with the Comprehensive Plan Map are not substantive policy changes that affect the
future development character and function of Springfield’s neighborhoods. The amendments
depict Nodal Development areas as overlays and combine various public- and parks-based
Exhibit G Page 14 of 16
Attachment 1 Page 167 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 15 of 16
designations into one designation name of “Public Land and Open Space” but do not change the
original descriptions or intent of the various pre-existing designations. As such, the amendments
are merely labelling changes to aid in making the Comprehensive Plan Map easy to read and in
making policy easier to interpret and apply.
Finding 3: The amendments to the Springfield Development Code in response to the
creation of the Springfield Comprehensive Plan Map and Land Use Element of the Springfield
Comprehensive Plan are also narrowly scoped and administrative in nature as shown in Exhibit F.
The purpose of these changes is to aid the user of the Development Code by clarifying how to
navigate applicable planning documents, whether the Metro Plan and/or the Springfield
Comprehensive Plan.
Finding 4: The text amendments to the Downtown Refinement Plan include a correction to
clarify that the policies in the Refinement Plan’s Public Spaces Element adopted by Ordinance
6148 (2005) replace the Public Spaces Element adopted in Ordinance 5316 (1986). During the
process of researching Springfield’s adopted refinement plans for this project, it became apparent
that Ordinance 6148 did not clearly state whether the intent was to only amend but retain the
original 1986 Public Spaces policies or whether the intent was to amend and replace the existing
policies. Since 2005, however, the Downtown Refinement Plan was published on the City’s
website without the 1986 Public Spaces Element policies. Because retaining the 1986 policies
would make the Public Spaces Element redundant to the added 2005 policies, the amendment
clearly removes the 1986 Plan policies in favor of the 2005 policies, as shown in Exhibit E. These
amendments do not change any other content of the Metro Plan or Springfield Comprehensive
Plan.
CONCLUSION: Based on the preceding findings, the refinement plan and Code amendments
conform to the Metro Plan and Springfield Comprehensive Plan. Approval criterion SDC
5.6.115(A)(1) is satisfied.
CRITERION #2: SDC 5.6.115(A)(2): CONFORMANCE WITH APPLICABLE STATE STATUTES
Finding 5: ORS 197.175 generally requires the City to exercise its planning and zoning
responsibilities in accordance with ORS Chapters 195, 196 and 197 and the goals approved under
ORS Chapters 195, 196 and 197. Compliance with Oregon’s Statewide Land Use Planning Goals are
discussed under Criterion #1. There are no statutes in ORS Chapters 195, 196, or 197 that apply to
the substance of these amendments.
Finding 6: ORS 197.610 and OAR 660-018-0020 require local jurisdictions to submit proposed
comprehensive plan or land use regulation changes to the Oregon Department of Land
Conservation and Development (DLCD). As noted in the Procedural Findings on pages 3-4 of this
staff report, notice of the proposed amendments was provided to DLCD more than 35 days in
advance of the first evidentiary hearing concerning the amendments.
CONCLUSION: Based on the aforementioned finding, the refinement plan and Code amendments
are consistent with applicable state statutes and meet SDC 5.6.115(A)(2).
Exhibit G Page 15 of 16
Attachment 1 Page 168 of 169
Staff Report – Springfield Comprehensive Plan Map Clarification Project Page 16 of 16
CRITERION #3: SDC 5.6.115(A)(3): CONFORMANCE WITH APPLICABLE STATEWIDE PLANNING GOALS
AND ADMINISTRATIVE RULES
Finding 7: The amendments to Springfield’s neighborhood refinement plans and the
Springfield Development Code are the result of changes to the Springfield Comprehensive Plan
and Metro Plan and the desired consistency between all four planning tools. The findings
addressing the approval criteria at SDC 5.14.135(A) and LC 12.300.030.A for amendments to the
Metro Plan and Springfield Comprehensive Plan are incorporated herein by reference in
demonstration that the refinement plan and Code amendments conform to Oregon’s Statewide
Planning Goals and Administrative Rules.
CONCLUSION: The applicable approval criteria at SDC 5.6.115 are satisfied.
VI. OVERALL CONCLUSION:
The findings herein demonstrate the Metro Plan and Springfield Comprehensive Plan
amendments are consistent with the applicable criteria of approval at SDC 5.14.135 and LC
12.300.030, and the amendments to Refinement Plans and the Springfield Development Code are
consistent with the applicable criteria of approval at SDC 5.6.115.
Exhibit G Page 16 of 16
Attachment 1 Page 169 of 169