HomeMy WebLinkAboutApplication Planner 1/9/2024
Willamalane Park and Recreation District Comprehensive Plan
Springfield Comprehensive Plan
Type IV Amendment Application
December 14, 2023
SOURCE: BerryDunn
Willamalane Park and Recreation District
2023 Comprehensive Plan
Comprehensive Plan Amendment Application December 14, 2023
INDEX
INDEX
COMPREHENSIVE PLAN AMENDMENT APPLICATION FORM
WRITTEN STATEMENT
1.0 Project Information ................................................................................................. 1
2.0 Project Background ................................................................................................ 2
3.0 Approval Criteria and Standards ............................................................................ 9
EXHIBITS
Metro Plan Amendments .................................................................................................. A
2023 Willamalane Park and Recreation District Comprehensive Plan .............................. B
2023 Willamalane Park and Recreation District Comprehensive Plan Appendices ............ C
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2023 Comprehensive Plan
Comprehensive Plan Amendment Application December 14, 2023
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1.0 PROJECT INFORMATION
Applicant’s Request: Approval of a Comprehensive Plan Amendment
application to adopt the 2023 Willamalane Park and
Recreation District Comprehensive Plan as an element
of the Springfield Comprehensive Plan and to amend
the Eugene-Springfield Metropolitan Area General Plan
to reflect adoption of the plan.
Applicant: Willamalane Park and Recreation District
250 S. 32nd Street
Springfield, Oregon 97478
541.736.4544
Applicant’s Representative: Colin McArthur, AICP
Principal Planner
Cameron McCarthy
160 E Broadway
Eugene, Oregon 97401
541.485.7385
cmcarthur@cameronmccarthy.com
Project Name: 2023 Willamalane Park and Recreation District
Comprehensive Plan
Application Type: Comprehensive Plan Amendment
Type 2 Text
Review Procedures: Type 4 (SDC 5.1.600)
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Comprehensive Plan Amendment Application December 14, 2023
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2.0 PROJECT BACKGROUND
2.1 Willamalane Park and Recreation District Overview
Willamalane Park and Recreation District (“WPRD,” “Willamalane,” “District”) operates as an
autonomous special district in the City of Springfield, Oregon. Willamalane owns and
operates parks and facilities under the guidance of an elected Board of Directors. The
operation of the District is overseen by an Executive Director who, along with senior
leadership, delivers an award-winning and nationally accredited parks and recreation
program. Willamalane has provided a high level of service since 1944 and is proud to be the
first special district to provide parks and recreation services in the state of Oregon.
2.2 Purpose of the 2023 WPRD Comprehensive Plan
The 2023 Willamalane Park and Recreation District Comprehensive Plan (“Comprehensive
Plan,” “2023 Plan,” “Plan”) is an update to Willamalane’s 2012 Park and Recreation
Comprehensive Plan. Since 2012, Willamalane staff have worked diligently to implement
improvements to 16 parks and recreation facilities, construct over 14 miles of trails and four
new neighborhood parks, provide access to over 700 additional acres of natural area, and
expand recreation programming across the District. However, the District and the community
it serves have changed significantly since the last planning effort. The population is growing
larger, older, and more racially diverse, while the District has doubled its available park
space and increased the overall inventory of parks from 27 to 45.
The 2023 Plan responds to these changes with updates to the District’s inventory and
community profile and a strategic outline for the future of Springfield’s parks, facilities, and
recreation programs across the next 20 years. The Plan provides a roadmap to guide
Willamalane’s decision-making, project prioritization, and fiscal planning processes. The
comprehensive planning process is focused on ensuring the community’s long-term
sustainability, development, and enhancement of parks and recreation services. The Plan
considers input from community members, ensuring that the facilities and programs align
with the needs and aspirations of District residents. Ultimately, the Plan aims to positively
impact the community by creating engaging and inclusive spaces that promote all District
residents' health, well-being, and quality of life. The Plan is tied to the City of Springfield
because the adopted 2012 Plan is Springfield’s comprehensive Recreation Element as a
Refinement Plan to the Metro Plan. The 2023 Plan, upon co-adoption by the Springfield City
Council and Lane County Board of Commissioners, will supersede and replace the 2012
Plan, and become an element of the Springfield Comprehensive Plan.
2.3 Planning Process Summary
In January 2022, the District hired BerryDunn, a nationally known management consulting
firm specializing in parks, recreation, and libraries, to work with the community to update the
Comprehensive Plan. The planning process was overseen by a project team that met
periodically during the 18-month planning period to advise the consultants on the direction
and content of the Plan. The project team included Willamalane staff and leadership and
project managers from BerryDunn. Regular meetings with a district-wide staff advisory
committee and project partners, including representatives from the City of Springfield and
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Lane County, and monthly progress reviews by Willamalane’s Board of Directors guided the
project team’s work.
The consultant team included RRC Associates, a national survey research firm, and SERA
Architects, a landscape architecture firm. Willamalane also contracted with local community
partners to help facilitate community conversations during the community outreach. This
collaborative approach helped to create a plan that blends the local knowledge of staff,
community members, and consultant expertise.
The foundation for the planning process was an extensive community engagement program
led and facilitated by both the consultants and Willamalane staff. The community
engagement process incorporated the opinions, needs, and desires of approximately 3,800
community members. The focus of the outreach work was outlined in an engagement plan
at the outset of the project. Five input areas were emphasized: stakeholder interviews and
focus groups, a needs assessment survey, digital outreach, pop-up surveys at community
events, and staff engagement. Findings from these engagement opportunities were posted
on a dedicated project landing page hosted on Willamalane’s website and presented to the
community at two town hall events. A series of updates were also provided to the District’s
Board of Directors, the Springfield Planning Commission and City Council, and the Lane
County Planning Commission and Board of Commissioners. The engagement process
outcomes helped create recommendations and action items for the 2023 Plan.
The planning process also involved evaluating existing access to parks and recreation
facilities against the District’s goal to provide park space within a 10-minute walk or one-half
mile of every resident. Currently, 80 percent of District residents meet this goal with varying
levels of service, and virtually all District residents live within one mile of a park. 20% of
District residents do not live within the half-mile service area of an existing park, and most
District residents lack walkable access to recreational trails.
2.4 Goals and Strategies
The results of the engagement process, needs assessment survey, and other qualitative and
quantitative research identified key issues and findings that were used to develop goals,
strategies, and actions. Seven goals are included in the 2023 Plan (listed in italic text):
(2023 Plan, p. 95)
• Goal 1: Continue to operate the district at a nationally accredited (CAPRA)
standard.
• Goal 2: Provide a safe and equitable system of parks and natural areas.
• Goal 3: Provide an easily accessed and connected system of paths and
trails.
• Goal 4: Provide access to high-quality and affordable recreation facilities.
• Goal 5: Strive for a high standard of care for the maintenance of parks,
trails, and facilities across the district.
• Goal 6: Offer recreation programs and services that respond to the
community’s needs and encourage healthy lifestyles.
• Goal 7: Be a responsible steward of district resources and partnerships.
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The seven goals serve as the basis for strategies and actions, which establish a roadmap the
District can follow to maintain and enhance park and recreation services to the public. The
strategies include actions that are prioritized into ongoing, short-term (1-5 years), mid-term
(6-10 years), and long-term (11+ years) projects. The 2023 Plan strategies are listed in italic
text and numbered under each goal: (2023 Plan, p. 95-108)
1.1. Review and update plans, policies, and procedures to align with the
changing needs of the community.
1.2. Strive for effective and transparent communication.
1.3. Prioritize Willamalane resources to best serve community members of all
abilities.
1.4. Integrate diversity, equity, inclusion (DEI) in every facet of district services.
1.5. Prioritize workplace culture.
1.6. Strengthen employee recruitment and retention.
2.1. Improve existing parks to enhance current level of service.
2.2. Expand acreage and recreation offerings to accommodate population
growth and provide parks and recreation opportunities in underserved
areas.
2.3. Improve and enhance the district’s sustainability initiatives.
3.1. Improve connectivity and access to existing paths and trails.
3.2. Provide a desirable experience for trail users.
4.1. Add or expand facilities to best meet user demand in the district.
5.1. Maintain a high standard of care for parks and open spaces.
5.2. Proactively manage existing natural areas.
5.3. Proactively manage and update trails and pathways in the district.
5.4. Manage facilities to create a safe and enjoyable user experience.
6.1. Maximize participation in recreation activities across the district.
6.2. Expand and adapt programs in response to the changing needs and
desires of the community.
7.1. Develop a long-term funding for capital improvements for new facilities
and upgrades.
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2.5 Projects
The 2023 Plan includes a list of capital projects that are prioritized, in part, based on
walkable access to parks and open spaces, considering the level of service in each of those
parks and facilities and opportunities to meet the needs of underserved areas of the
community. The Plan identifies gaps where available services may not fully meet community
needs and presents opportunities to increase the level of service. Gap areas are further
evaluated for total population, median household income, diversity index, and crime index.
The following Map (Figure 1) Illustrates sections of the District that have the greatest need
for walkable service to parks.
The strategies and actions provide a roadmap for the District to maintain and enhance
recreation services to the public. Appendix 11: Project List and Phasing Plan identifies 118
capital projects prioritized into short-term (1-5 years), mid-term (6-10 years), and long-term
(11+ years) phases, as well as ongoing project priorities to be implemented as opportunities
arise. Higher priority actions include projects that address more pressing needs or provide a
broader community benefit.
Figure 1. Priority Walkable Access Areas (2023 Plan, Figure 35, p. 110) (Source: BerryDunn)
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Figure 2. Proposed Park Improvement Projects (2023 Plan, Figure 36) (Source: BerryDunn)
The projects are organized in the following categories:
• (11) Future park planning and design projects
• (29) Existing park level of service expansion projects
• (9) Existing park minor upgrade projects
• (5) New parks development in high-priority growth area projects
• (22) Acquisition projects
• (28) Trail projects
• (6) Building facility projects
• (8) Coordination with partners projects
Maps (Figure 2, Figure 3) illustrate the Proposed Park Improvement Projects and Proposed
Path and Trail Improvement Projects.
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Figure 3. Proposed Path and Trail Improvement Projects
The Plan includes a financial strategy that builds from the Capital Improvement Plan created
in 2012 to propose funding for the first phase of prioritized projects. The District utilizes four
primary sources of revenue to support capital projects: Building and Construction Funds,
System Development Charges, Grants and Donations, and General Obligation Bonds. The
financial strategy is planned to be updated on a five-year basis. The financial strategy is a
roadmap to guide the District’s Capital Improvement Program (CIP). Through the CIP
process, projects are selected and budgeted annually and approved by the Willamalane
Board of Directors.
The Plan includes best practices for implementing the comprehensive plan given appropriate
community engagement, transparent decision-making, and sufficient resources. These
practices include:
• Establishing internal task force groups specific to individual objectives and action
items.
• Applying performance measures to assess District progress toward meeting the
comprehensive plan goals.
• Annual progress reporting, quarterly implementation review, quarterly reporting on
master plan status, and regular reporting to the public to feature accomplishments
and project status.
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The planning process for the 2023 Plan included an extensive public input process involving
the general public and partner governing agencies.
2.6 Adoption
The Willamalane Park and Recreation District Comprehensive Plan, dated September 13,
2023, was adopted by the Willamalane Board of Directors by Resolution No. 23-24.01. The
2023 Plan supersedes and replaces the 2012 Willamalane Park and Recreation
Comprehensive Plan (“2012 Plan”).1 The 2012 Plan was adopted as a Refinement Plan of
the Metro Plan. Since 2011, Springfield has adopted elements of a Comprehensive Plan.
Willamalane is designated in the Metro Plan as the park and recreation service provider for
Springfield and its urbanizable area. The proposed amendments adopt the 2023
Willamalane Park and Recreation District Comprehensive Plan as an element of the
Springfield Comprehensive Plan and amend the Metro Plan to reflect the Plan's adoption.
Comprehensive (Metro) Plan Amendments are reviewed under Type 4 procedures as
specified in Springfield Development Code (SDC) 5.1.140. The amendments are classified
as Type 2 amendments requiring approval by Springfield and Lane County. Springfield has
consulted with the City of Eugene regarding Eugene’s participation in the process. Eugene
has no present need or interest in participating in the adoption process. SDC 5.14.125
specifies that a property owner may initiate Type 2 amendments at any time. The District is
a property owner. The proposed amendments must conform to the following criteria:
• Applicable Statewide Planning Goals and Administrative Rules.
• The Metro Plan
• The Springfield Comprehensive Plan
Findings of compliance with applicable goals, rules, policies, criteria, and standards are
provided in Section 3.
1 Ordinance 6303; Adopted November 4, 2013.
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3.0 APPROVAL CRITERIA AND STANDARDS
SDC 5.14.135 establishes the approval criteria and standards for Comprehensive 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:
3.1 Statewide Planning Goals and Administrative Rules
(A) The amendment shall be consistent with applicable Statewide Planning
Goals; and
Statewide planning goals are written in bold, and relevant approval criteria are summarized
in italics, followed by proposed findings of fact in standard text.
Goal 1: Citizen Involvement
To develop a citizen involvement program that insures the opportunity for
citizens to be involved in all phases of the planning process.
The 2023 Willamalane Park and Recreation District (Willamalane) Comprehensive Plan
(“2023 Plan,” “Comprehensive Plan,” “Plan”) was founded on a well-established practice of
active engagement with district community members, stakeholders, and both users and non-
users of parks and trails, programs, and facilities. To ensure compliance with Oregon’s
statewide planning Goal 1, a formal Community Engagement Plan was presented to the City
of Springfield’s Committee for Citizen Involvement near the project's outset in April 2023.2
The tasks in the engagement plan focused on identifying community needs across the spring
and summer of 2022 and assessing priorities during the following fall and winter of 2022-
2023. The selected community engagement strategies support the following goals:
• Promote project awareness throughout the planning process.
• Gain a deeper understanding of who Willamalane serves.
• Learn about gaps, barriers, needs, and preferences within the park district.
• Understand the community’s priorities for parks and recreation for the coming future.
• Gain support for final plan recommendations.
The community engagement plan included a variety of public engagement opportunities
across a timeline that extended from project initiation to the delivery of the final plan.
Specific engagement activities included town hall meetings, stakeholder interviews, focus
groups, surveys, and pop-up events. Table 1. Community Engagement by Numbers
2 Springfield Committee for Citizen Involvement. April 5, 2022.
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presents the total number of community members engaged in the planned process by
specific engagement activity.
Table 1. Community Engagement by Numbers
COMMUNITY MEMBERS (NO.) ENGAGEMENT ACTIVITY
235 Stakeholder and Focus Groups
1,598 Needs Assessment Survey
28,841 Digital Outreach
1,766 Pop-up and Intercept Events
207 Internal Engagement (Staff input)
Overall, 32,285 district residents either received targeted social media posts or email
notifications (passive engagement) or provided some form of input (active engagement).
More than 3,800 community members provided input throughout the planning process, with
most responses coming from the needs assessment and intercept event. 1,598 of these
responses came from the needs assessment survey. Paper versions of the survey were
mailed to a systematic random sample of addresses in the district with the option to complete
the survey through an online protected website, which was limited to one response per
household). An online survey was made available to all district stakeholders, including non-
district residents (e.g., commuters and residents of nearby communities).
An additional 1,766 people were engaged through in-person intercept events. Willamalane
staffed pop-up tables at a broad range of 22 community events across the summer to reach
as diverse an audience as possible. The community events focus on families, children, older
adults, Latinx heritage, Asian American/Pacific Islander heritage, and the LGBTQIA+
community. Attendees at these events were invited to participate in a voting activity and
encouraged to take the online survey. In addition to the survey and pop-up events,
Willamalane engaged 235 people through targeted focus groups and over 200 staff members
through an internal engagement process.
To help confirm the results from the community engagement process, three town hall
meetings3 were held, and discussions were facilitated with various community partners,
including the Springfield Planning Commission, Springfield City Council, the Lane County
Planning Commission, and the Lane County Board of Commissioners. Overall, the public
involvement strategy for the WPRD Comprehensive Plan provided a wide range of
opportunities for citizens to provide input and for the public to view results and project
progress throughout its duration.
3 The town hall meetings were held on April 21, 2022, November 16, 2022, and June 26, 2023.
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The above findings demonstrate that Willamalane has provided extensive opportunities for
citizens to be involved in all phases of the planning process. Therefore, the proposed
amendments are consistent with Goal 1.
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.
Guiding land use processes and policy framework for the City of Springfield exist within the
Metro Plan, Springfield Comprehensive Plan, adopted Refinement Plans, and the Springfield
Development Code (SDC). The proposed Comprehensive Plan Amendment will not infringe
upon the capacity of these documents as adequate factual-based tools for land use
decisions and actions.
Goal 2 focuses on the requirements for developing and adopting local land use plans.
Willamalane underwent a deliberate and thorough process of updating its comprehensive
plan under the Intergovernmental Agreement (IGA) Regarding Coordinated Planning and
Urban Services with the City of Springfield and its approved Citizen Involvement Program to
ensure compliance with the Metro Plan, Springfield Comprehensive Plan, and Goal 2.
The foundation for the 2023 Plan is the extensive Community Engagement Plan, detailed in
Exhibit C. Appendix 6. Outcomes of the engagement process informed recommendations
and action items for the Comprehensive Plan. The results of the engagement process, the
needs assessment survey, and other qualitative and quantitative research informed goals,
strategies, and actions for the Comprehensive Plan, detailed in Exhibit B. Chapter 10. The
goals, strategies, and actions define the Project List and Phasing Plan (Exhibit C. Appendix
11), which details capital projects prioritized into short-term (1-5 years), mid-term (6-10
years), and long-term (11+ years) project phases, in addition to identifying ongoing project
priorities to be implemented as opportunities arise. The Comprehensive Plan includes an
ongoing action that commits Willamalane to “assess community needs and update
Willamalane’s Park and Recreation Comprehensive Plan per the district’s administrative
policies to respond to changing needs.”4
The findings under Goal 1: Citizen Involvement and the Metro Plan K. Citizen Involvement
Element provide additional information regarding citizen engagement efforts and processes
used to update the Comprehensive Plan and ensure compliance with Statewide Planning
Goal 2. These findings are incorporated by reference herein. Based on these findings, the
proposed amendments are consistent with Goal 2.
4 Willamalane Park and Recreation District Planning and Park Development Policy requires the District
to update its park and recreation comprehensive plan (comprehensive plan) every five years and
prepare a comprehensive update of the comprehensive plan every 10 years. Policy PPF-05. Revised
June 6, 2001.
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Goal 3: Agricultural Lands
To preserve and maintain agricultural lands.
According to OAR 660-015-0000, Goal 3 does not apply within adopted and acknowledged
urban growth boundaries. The City of Springfield has an adopted and acknowledged urban
growth boundary.5 The City of Springfield has an adopted and acknowledged property-
specific Comprehensive Plan Map.6 The map clarifies the location of plan designations by
interpreting the Metro Plan Diagram for each property within Springfield’s urban growth
boundary.
The City of Springfield has one agricultural zoning district, Agriculture – Urban Holding Area
(AG) Land Use District (SDC 3.2.900). The purpose of the district is to “protect urbanizable
lands designated Urban Holding Area-Employment (UHA-E) and Natural Resource (NR) in
the comprehensive plan from land division and incompatible interim development.”
Willamalane does not own or maintain any land in the AG District. Willamalane district
boundaries extend outside the Springfield urban growth boundary.
Outside of the urban growth boundary, one existing Willamalane parks and recreation facility
is designated Agriculture by the Lane County Rural Comprehensive Plan and Exclusive Farm
Use by the Lane County Land Use and Development Code.
• Harvest Landing
OAR 660-034-0040 addresses local park use on agricultural land. By reference, this
administrative rule lists uses that may occur on parks located on agricultural land, including
but not limited to (OAR 660-034-0035):
• Day use areas: picnic shelters, barbecue areas, swimming areas (not swimming
pools), open play fields, play structures;
• Recreational trails: walking, hiking, biking, horse, or motorized off-road vehicle trails;
trail staging areas;
• Boating and fishing facilities: launch ramps and landings, docks, moorage facilities,
small boat storage, boating fuel stations, fish cleaning stations, boat sewage pumpout
stations;
• Support facilities serving only the park lands wherein the facility is located: water
supply facilities, sewage collection and treatment facilities, storm water management
facilities, electrical and communication facilities, restrooms and showers, recycling
and trash collection facilities, registration buildings, roads and bridges, parking areas
and walkways;
5 Ordinance 6268; Adopted June 20, 2011.
6 Ordinance 6463; Adopted November 20, 2023.
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• Natural and cultural resource interpretative, educational and informational facilities in
state parks: interpretative centers, information/orientation centers, self-supporting
interpretative and informational kiosks, natural history or cultural resource museums,
natural history or cultural educational facilities, reconstructed historic structures for
cultural resource interpretation, retail stores not exceeding 1500 square feet for sale
of books and other materials that support park resource interpretation and education.
The rule provides that a local government is not required to adopt an exception to Statewide
Planning Goals 3 or 4 for [these uses] on agricultural or forest land within a local park
provided such uses, alone or in combination, meet all other statewide goals and [are]
described and authorized in a local park master plan that has been adopted as part of the
local comprehensive plan Section (1) of this rule and consistent with all statewide goals
(OAR 660-034-0040(4)(a)). OAR 660-0340040(1) specifies that local park providers may
prepare local park master plans, and local governments may amend acknowledged
comprehensive plans and zoning ordinances under the requirements and procedures of ORS
197.610 to 197.625 to implement such local park plans. Upon approval, the proposed
amendments adopt the Comprehensive Plan as an element of the Springfield
Comprehensive Plan.
Harvest Landing is classified as a Natural Area Park. The Plan defines Natural Area Parks
as managed for both recreational use and natural values. These parks provide opportunities
for nature-based recreation, such as wildlife viewing, hiking, jogging, bicycling, and nature
photography.
These uses are consistent with those allowed on agricultural land; therefore, no goal
exception is necessary. Based on these findings, the proposed amendments are consistent
with Goal 3.
Goal 4: Forest Lands
To conserve forest lands by maintaining the forest land base and to protect the
state’s forest economy by making possible economically efficient forest
practices that assure the continuous growing and harvesting of forest tree
species as the leading use on forest land consistent with sound management
of soil, air, water, and fish and wildlife resources and to provide for recreational
opportunities and agriculture.
According to OAR 660-006-0020, Statewide Planning Goal 4 is not applicable within urban
growth boundaries. The City of Springfield has an adopted and acknowledged urban growth
boundary.7 The City of Springfield has an adopted and acknowledged property-specific Plan
Map.8 The map clarifies the location of plan designations by interpreting the Metro Plan
7 Ordinance 6268; Adopted June 20, 2011.
8 Ordinance 6463; Adopted November 20, 2023.
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Diagram for each property within Springfield’s urban growth boundary. The City of
Springfield does not have any forest zoning districts. Willamalane district boundaries extend
outside the Springfield urban growth boundary.
Outside of the urban growth boundary, one existing Willamalane facility is designated Forest
by the Lane County Rural Comprehensive Plan and Nonimpacted Forest Lands or Impacted
Forest Lands by the Lane County Land Use and Development Code.
• Thurston Hills Natural Area
OAR 660-034-0040 addresses local park use on agricultural land. By reference, this
administrative rule lists uses that may occur on parks located on agricultural land, including
but not limited to (OAR 660-034-0035):
• Day use areas: picnic shelters, barbecue areas, swimming areas (not swimming
pools), open play fields, play structures;
• Recreational trails: walking, hiking, biking, horse, or motorized off-road vehicle trails;
trail staging areas;
• Natural and cultural resource interpretative, educational and informational facilities in
state parks: interpretative centers, information/orientation centers, self-supporting
interpretative and informational kiosks, natural history or cultural resource museums,
natural history or cultural educational facilities, reconstructed historic structures for
cultural resource interpretation, retail stores not exceeding 1500 square feet for sale
of books and other materials that support park resource interpretation and education.
The rule provides that a local government is not required to adopt an exception to Statewide
Planning Goals 3 or 4 for [these uses] on agricultural or forest land within a local park
provided such uses, alone or in combination, meet all other statewide goals and [are]
described and authorized in a local park master plan that has been adopted as part of the
local comprehensive plan Section (1) of this rule and consistent with all statewide goals
(OAR 660-034-0040(4)(a)). OAR 660-0340040(1) specifies that local park providers may
prepare local park master plans, and local governments may amend acknowledged
comprehensive plans and zoning ordinances under the requirements and procedures of ORS
197.610 to 197.625 to implement such local park plans. Upon approval, the proposed
amendments adopt the Comprehensive Plan as an element of the Springfield
Comprehensive Plan.
Thurston Hills Natural Area is classified as a Natural Area Park in the Comprehensive Plan.
The Plan defines Natural Area Parks as managed for both recreational use and natural
values. These parks provide opportunities for nature-based recreation, such as wildlife
viewing, hiking, jogging, bicycling, and nature photography.
These uses are consistent with those allowed on forest land; therefore, no goal exception is
necessary. Based on these findings, the proposed amendments are consistent with Goal 4.
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Goal 5: Open Spaces, Scenic and Historic Areas, and Natural Resources
To conserve open space and protect natural and scenic resources.
The City of Springfield conducts Goal 5 inventories of natural, scenic, and historic areas, and
open space resources through separate processes and protects the significant resources
through implementation programs. These features are shown on specific maps, which are
adopted via ordinance and acknowledged.
The following Oregon Administrative Rule (OAR 660-023-0250) applies to this
Comprehensive Plan amendment request:
OAR 660-023-0250
(3) Local governments are not required to apply Goal 5 in consideration of a PAPA
unless the PAPA affects a Goal 5 resource. For purposes of this section, a
PAPA would affect a Goal 5 resource only if:
(a) The PAPA creates or amends a resource list or a portion of an
acknowledged plan or land use regulation adopted in order to protect a
significant Goal 5 resource or to address specific requirements of Goal 5;
(b) The PAPA allows new uses that could be conflicting uses with a particular
significant Goal 5 resource site on an acknowledged resource list; or
(c) The PAPA amends an acknowledged UGB and factual information is
submitted demonstrating that a resource site, or the impact areas of such
a site, is included in the amended UGB area.
The proposed amendments do not create or amend a list of Goal 5 resources, a plan, or a
land use regulation adopted to protect a significant Goal 5 resource or to address specific
requirements of Goal 5 and do not amend the acknowledged urban growth boundary.
Therefore, the proposed amendments do not trigger the need to consider Goal 5 according
to OAR 660-023-0250(3)(a) or 3(c). Some analysis is required to determine whether OAR
660-023-0250(3)(b) triggers the need to consider Goal 5 requirements further. Subsection
(3)(b) asks whether “[t]he PAPA allows new uses that could be conflicting uses with a
particular significant Goal 5 resource site on an acknowledged resource list.”
Goal 5 focuses on the resources to be inventoried by local governments to “adopt programs
that will protect natural resources and conserve scenic, historic, and open space resources
for present and future generations.” Significant Goal 5 resource sites and acknowledged lists
are documented in the Springfield Natural Resources Study, the Springfield Inventory of
Natural Resource Sites, and the Springfield Local Wetland Inventory. The Springfield
Natural Resources Study was adopted in 2005 and prescribes protection measures for the
resource sites identified in the wetland and natural resource inventories. The Springfield
Inventory of Natural Resource Sites was adopted in 2004 and identifies riparian corridors
within the urban growth boundary. The Springfield Local Wetland Inventory was adopted in
1998 and identifies wetlands within the urban growth boundary. These studies and
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inventories were updated in 2011 as part of a Metro Plan amendment.9 Springfield is
currently conducting a project (Natural Resource Inventories & Protections for Springfield’s
UGB Expansion Areas) to identify and evaluate natural resources in urban growth boundary
expansion areas, identified in 2019, to determine which resources offer significant benefits
and should be locally protected in compliance with Statewide Planning Goal 5.
Springfield has other existing compliant programs in place to achieve Goal 5. Springfield
Development Code 4.3-117 Natural Resource Protection Areas contains the City’s
development standards for protecting natural resources to implement Goal 5, safeguard fish
and wildlife habitat, and implement the goals and policies of the Metro Plan. The code
provisions apply to “land within the wetland and/or riparian resource boundary and the
development setback area, specifically locally significant protected wetlands, listed in the
Local Wetland Inventory and shown on the Local Wetland Inventory Map; locally significant
protected riparian areas, listed in the Springfield Inventory of Natural Resources Sites.”
The Intergovernmental Agreement (IGA) between Willamalane and City of Springfield states,
the “District shall be responsible for preparing, maintaining and updating a comprehensive
parks, recreation and open space refinement plan for the area within its boundaries,
including the City of Springfield and adjacent urbanizable area, for the purposes of meeting
statewide Planning Goal 8 requirements and ensuring long-range public parks, recreation,
and open space facilities/services.”
As the IGA directs, Willamalane’s responsibility is to meet Goal 8 requirements, and the City
of Springfield is responsible for meeting Goal 5 requirements. However, recreation-related
open spaces are addressed in the Comprehensive Plan, per the direction of the Springfield
Comprehensive Plan and the Metro Plan.
The Metro Plan notes in the Environmental Resources Element (Metro Plan, III-C-1), “open
space can also be a park … examples of regional Parks (sic) that provide significant public
open space areas for metropolitan residents include … Willamalane Park and Recreation
District’s Clearwater Park, Eastgate Woodlands, and Dorris Ranch.” The Metro Plan goes on
to acknowledge in the Environmental Resources Element (Metro Plan, III-C-5) “open space
provides many benefits in an urban area, including … provision of recreation opportunities.”
The Springfield Natural Resources Special Study, adopted in 2005 and amended in 2011,
includes an inventory of locally significant upland, riparian, and wetland resource sites.
Several of Willamalane’s existing park sites are included in that inventory, including Dorris
Ranch, Willamette Heights, and the Eastgate Woodlands. The development of natural area
park facilities is subject to the Goal 5 program of protection. These protection measures
allow for limited recreational use, including, but not limited to, multi-use paths and low-impact
passive recreation.
9 Ordinance No. 6265; adopted February 22, 2011.
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The 2023 Plan defines a Natural Area Park as “managed for both recreational use and
natural values. They provide opportunities for nature-based recreation, such as wildlife
viewing, hiking, jogging, bicycling, and nature photography. These parks provide
opportunities for experiencing nature close to home and protect valuable natural resources
and wildlife. They are of sufficient size to protect resource[s] and accommodate passive
recreation.” (2023 Plan, p. 49)
Chapter 5 of the Plan includes two findings that address the significance and importance of
natural areas:
“There has been significant growth in natural areas, from 186 acres of natural area
and no dedicated natural resource staff in 2012 to well over 800 acres of natural
areas and two full-time staff dedicated to planning and managing these areas.” (2023
Plan, p. 91)
“Natural areas are important to the community, and there are unique opportunities to
acquire and preserve additional parkland for this purpose.” (2023 Plan, p. 91)
Chapter 5 of the Plan includes two actions focused on natural areas:
“Action 2.1.f: Look for opportunities to expand habitat and provide natural area
supporting amenities within developed parks. This could include, green
infrastructure, expanding urban forest, short nature trails, nature play elements,
and/or signage and interpretation.” (2023 Plan, p. 97)
“Action 2.2.f: Look for opportunities to acquire land to support improved capacity and
access to existing natural areas including: Harvest Landing, Thurston Hills Natural
Area, Willamette Heights, and Georgia Pacific Natural Area.” (2023 Plan, p. 99)
The connection between the purpose of Goal 5 and the findings, goals, and strategies in the
2023 Plan are mutually supportive and consistent in intent. Based on these findings, the
proposed amendments are consistent with Goal 5.
Goal 6: Air, Water and Land Resources Quality
To maintain and improve the quality of the air, water and land resources of the
state.
Goal 6 addresses waste and process discharge from development and aims to protect air,
water, and land from impacts from those discharges. The 2023 Plan does not amend the
Metro Plan or Springfield Comprehensive Plan’s area’s air, water quality, or land resource
policies. Goal 6 is primarily concerned with compliance with federal and state environmental
quality statutes and how this compliance is achieved as development proceeds concerning
air sheds, river basins, and land resources.
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The 2023 Plan includes a strategy to improve and enhance the District’s sustainability
initiatives (2023 Plan, Strategy 2.3, p. 101). The strategy includes the following actions that
support the intent of Goal 6:
“Action 2.3.a: Limit the district’s carbon footprint. Create an internal sustainability plan
with measurable goals and action items.” (2023 Plan, p. 101)
“Action 2.3.f: Work with local partners to address green infrastructure needs
throughout the park system.” (2023 Plan, p. 101)
Based on these findings, the proposed amendments are consistent with Goal 6.
Goal 7: Areas Subject to Natural Disasters and Hazards
To protect life and property from natural disasters and hazards.
Goal 7 requires local governments to adopt comprehensive plans to reduce risk to people
and property from natural hazards such as floods, landslides, earthquakes, tsunamis, and
wildfires. The City of Springfield protects people and property from natural hazards through
various land use and building code requirements. The 2023 Plan does not amend these
protective provisions, nor does it propose development in areas identified to be unsuitable for
development.
Based on these findings, the proposed amendments are consistent with Goal 7.
Goal 8: Recreational Needs
To satisfy the recreational needs of the citizens of the state and visitors and,
where appropriate, to provide for the siting of necessary recreational facilities
including destination resorts.
Goal 8 requires local governmental agencies to plan for recreation areas, facilities, and
opportunities. Goal 8 ensures the provision of recreational facilities to Oregon citizens and is
primarily concerned with providing those facilities in non-urban areas of the state.
Goal 8 requires planning to meet recreation needs “now and in the future” by governmental
agencies responsible for recreation areas, facilities, and opportunities. Goal 8 guidelines
recommend inventories to determine recreation needs in the planning area,” based on
adequate research and analysis of public wants and desires.” “Long range plans and action
programs to meet recreational needs should be developed by each agency responsible for
developing comprehensive plans.” (OAR 660-015-0000(8))
Willamalane is designated in the Metro Plan as the park and recreation service provider for
Springfield and its urbanizable area. Willamalane is a special service taxing district with the
authorization to purchase, develop and maintain park facilities. Willamalane has no authority
or obligation for Goal 8 compliance; that responsibility lies with the City of Springfield after
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coordinating with the Park District.10 Springfield’s acknowledged Goal 8 Comprehensive Plan
element is the Willamalane Park and Recreation Comprehensive Plan.
The 2023 Plan updates the 2012 Willamalane Park and Recreation Comprehensive Plan.
The Plan provides a roadmap for the district to operate over the next ten years and beyond.
The planning area for the 2023 Plan encompasses the Springfield urban growth boundary
and the district boundary, which extends outside the urban growth boundary in certain areas,
as shown in Figure 4. In addition, developed areas annexed by the City of Springfield are
automatically annexed to the District. Willamalane owns 1,630 acres of land and 45 facilities
within the District boundary. (2023 Plan, p. 51, Table 9)
Figure 4. Willamalane Park and Recreation District Service Area (2023 Plan, Figure 7)
In 2020, the population within the urban growth boundary was estimated at 70,337. The
2023 Plan projects that the population will increase to over 75,159 by 2035. (2023 Plan, p.
23, Figure 8)
10 Ordinance 6268; Adopted June 20, 2011.
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The 2023 Plan includes level of service standards for park classifications including Pocket
Parks, Neighborhood Parks, Community Parks, Sports Parks, and Other Parkland.11 The
2023 Plan proposes increasing the level of service standard from 21.80 acres of parkland per
1,000 residents to 25.55 acres of parkland per 1,000 residents. Based on this standard,
289.71 acres of parkland are needed by 2035.
The 2023 Plan includes strategies and actions for acquiring, developing, improving, and
managing parks, natural areas, walking and biking trails, recreation facilities and program
opportunities within the planning area over the next 20 years. The strategies and actions are
derived from the following comprehensive plan goals: (2023 Plan, p. 95)
• Goal 1: Continue to operate the district at naturally accredited CAPRA standard.
• Goal 2: Provide a safe and equitable system of parks and natural areas.
• Goal 3: Provide an easily accessed and connected system of paths and trails.
• Goal 4: Provide access to high-quality and affordable recreation facilities.
• Goal 5: Strive for a high standard of care for the maintenance of parks, trails, and
facilities across the district.
• Goal 6: Offer recreation programs and services that respond to district needs and
encourage healthy lifestyles.
• Goal 7: Be a responsible steward of district resources and partnerships.
The strategies and actions provide a roadmap for the District to maintain and enhance
recreation services to the public. Appendix 11: Project List and Phasing Plan identifies 118
capital projects prioritized into short-term (1-5 years), mid-term (6-10 years), and long-term
(11+ years) phases, as well as ongoing project priorities to be implemented as opportunities
arise. Higher priority actions include projects that address more pressing needs or provide a
broader community benefit. The projects are organized in the following categories:
• (11) Future park planning and design projects
• (29) Existing park level of service expansion projects
• (9) Existing park minor upgrade projects
• (5) New parks development in high-priority growth area projects
• (22) Acquisition projects
• (28) Trail projects
• (6) Building facility projects
• (8) Coordination with partners projects
Chapter 10: Implementing the Park and Recreation Comprehensive Plan includes best
practices for implementing the comprehensive plan given appropriate community
11 Other Parkland includes Natural-Area Parks, Special-Use Parks, and Linear Parks. 2023 Plan,
p.51. Table 9.
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engagement, transparent decision-making, and sufficient resources. These practices
include:
• Establishing internal task force groups specific to individual objectives and action
items.
• Applying performance measures to assess District progress toward meeting the
comprehensive plan goals.
• Annual progress reporting, quarterly implementation review, quarterly reporting on
master plan status, and regular reporting to the public to feature accomplishments
and project status.
The planning process for the 2023 Plan included an extensive public input process involving
the general public and partner governing agencies. The 2023 Plan, adopted by Resolution
No. 23-24.01, replaces and supersedes all previously adopted Park and Recreation
Comprehensive Plans. (2023 Plan, p. I). The 2023 Plan is adopted as Springfield’s
acknowledged Goal 8 Comprehensive Plan element. The 2023 Plan does not involve the
siting of destination resorts. Based on these findings, the proposed amendments are
consistent with Goal 8.
Goal 9: Economic Development
To provide adequate opportunities throughout the state for a variety of
economic activities vital to the health, welfare, and prosperity of Oregon’s
citizens.
Goal 9 addresses land use needs (inventory) for employment opportunities in commercial
and industrial sites. The 2023 Plan does not affect commercial or industrial land inventories
or limit access or other services to such sites. The 2023 Plan recognizes the role of
recreational services and facilities as a support for community efforts to retain businesses
and employees and attract new businesses to the area. Based on these findings, the
proposed amendments are consistent with Goal 9.
Goal 10: Housing
To provide for the housing needs of citizens of the state.
Similar to Goal 9, Goal 10 is intended to protect residential land inventories and requires
implementation measures that promote housing opportunities in various economic ranges
and densities. Goal 10 requires that communities plan for and maintain an inventory of
buildable residential land for needed housing units.
The residential land use policies included in the Springfield 2030 Refinement Plan
Residential Land Use and Housing Element and the technical analysis included in the
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Springfield Residential Land and Housing Needs Analysis, April 2011, address Goal 10.12
The findings demonstrate that Springfield has sufficient land designated for Low Density
Residential (surplus of 378 acres) and Medium Density Residential (surplus of 76 acres) and
a deficit of High Density Residential (deficit of 28 acres) land. The deficit of High Density
residential land is addressed through re-designation through Policy H.2, which requires the
re-designation of land within the Glenwood Refinement Plan boundary.
The analysis also shows that Springfield has a deficit of 300 acres of Parks and Open Space
land. Findings in the Residential Land Supply and Demand section of the Springfield 2030
Refinement Plan Residential Land Use and Housing Element address the need for parks and
open space lands:
Finding 12: The Parks and Open Space 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 also be met on residentially
designated land that has constraints and therefore is not counted as building acres
(e.g. ridgeline trail systems).
The 2023 Plan includes level of service standards for park classifications, including Pocket
Parks, Neighborhood Parks, Community Parks, Sports Parks, and Other Parkland.13 The
2023 Plan proposes increasing the level of service standard from 21.80 acres of parkland per
1,000 residents to 25.55 acres of parkland per 1,000 residents. Based on this standard,
289.71 acres of parkland are needed by 2035.
The proposed deficit of 300 acres (Springfield 2030 Refinement Plan Residential Land Use
and Housing Element) or 289.71 acres14 (2023 Plan) is within the estimated surplus of
buildable land remaining for residential land use in Springfield by 2023. Therefore, the
proposed amendments do not negatively affect the residential land inventory. Based on
these findings, the proposed amendments are consistent with Goal 10.
12 Ordinance 6268; Adopted June 20, 2011. Amending the Eugene-Springfield Metropolitan Area
General Plan (Metro Plan) to Adopt the Springfield 2030 Refinement Plan Residential Land Use and
Housing Element and to Establish a Separate Springfield Urban Growth Boundary Pursuant to ORS
197.304.
13 Other Parkland includes Natural-Area Parks, Special-Use Parks, and Linear Parks. 2023 Plan,
p.51. Table 9.
14 The 2023 Plan horizon is 2035 while the Springfield Residential Land and Housing Needs Analysis
is 2030.
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Goal 11: Public Facilities and Services
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.
The emphasis of Goal 11 is on key urban services other than parks and recreation, and the
focus is on the need for a 20-year public facilities and services plan (PFSP). The Eugene-
Springfield Metropolitan Area Public Facilities and Services Plan (PFSP) is a refinement plan
of the Metro Plan. The PFSP satisfies state requirements for public facilities plans for
Eugene, Springfield, and Lane County and addresses needs for water, wastewater,
stormwater, and electrical facilities and projects. Since it was adopted in 2011, the cities
have adopted individual amendments to the PFSP, but the document has not been updated
to reflect any amendments. Springfield adopted PFSP amendments in 2015.15
The proposed amendments do not affect the City’s public facilities and services
arrangement. Based on these findings, the proposed amendments are consistent with Goal
11.
Goal 12: Transportation
To provide and encourage a safe, convenient and economic transportation
system.
The Transportation Planning Rule (TPR), defined by Oregon Administrative Rule OAR 660-
012-0060, implements Goal 12. The focus of this goal is on the development of a
transportation plan and compliance with mobility standards. The Regional Transportation
Plan (RTP) guides the planning and development of the transportation system with the
Central Lane Transportation Management Area (TMA). The Regional Transportation System
Plan (RTSP) is a state-mandated transportation system plan that must be prepared for an
MPO region and serves a functional role as the link between the local Transportation System
Plan and the RTP. TransPlan is the current RTSP for the Eugene-Springfield area. It was
adopted, updated, and amended by the entire governing bodies of Eugene, Springfield, and
Lane County, most recently in July 2002.
The City of Springfield adopted the Springfield Transportation System Plan (TSP) in 2014
and updated the plan in 2020. The 20-year plan looks at how the transportation system is
currently being used and identifies the community’s multi-modal transportation system vision
to serve the needs of residents, businesses, and visitors. Based on these findings, the
proposed amendments are consistent with Goal 12.
Goal 13: Energy Conservation
To conserve energy.
15 Ordinance No. 6341; Adopted September 15, 2015.
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Goal 13 requires that land and uses developed on the land be managed and controlled to
maximize the conservation of all energy forms based on sound economic principles. Goal 13
is directed at developing local energy policies and implementing provisions and does not
establish any requirements for other types of land use decisions.
Goal 13 requires local jurisdictions to include energy consequences during decision-making.
The 2023 Plan includes a strategy to improve and enhance the District’s sustainability
initiatives. The strategy includes the following actions that support the intent of Goal 13:
“Action 2.3.a: Limit the district’s carbon footprint. Create an internal sustainability plan
with measurable goals and action items.” (2023 Plan, p.101)
“Action 2.3.c: Help ensure all current and future park and facility lighting is as energy
efficient as possible (e.g. LED). Consider dark sky compliant lighting where possible.”
(2023 Plan, p. 101)
“Action 2.3.d: Replace hand-powered gas equipment with electric where practical.”
(2023 Plan, p. 101)
“Action 2.3.e: Convert district’s gas-powered vehicle fleet to electric in phases;
partner with other local government agencies to distribute charging infrastructure.”
(2023 Plan, p. 101)
“Action 2.3h: Expand energy-efficiency upgrades and retrofits at district facilities to
minimize consumption and utility costs.” (2023 Plan, p. 101)
The findings from the Metro Plan Energy Element are incorporated by reference herein.
Based on these findings, the proposed amendments are consistent with Goal 13.
Goal 14: Urbanization
To provide for an orderly and efficient transition from rural to urban land use.
The focus of Goal 14 is on urban growth boundaries, their establishment and change, and, to
a lesser degree, the treatment of land within and outside of urban growth boundaries.
Willamalane Park and Recreation District is designated in the Metro Plan and Springfield
Comprehensive Plan as the park and recreation service provider for Springfield and its
urbanizable area.
The 2023 Plan updates the 2012 Willamalane Park and Recreation Comprehensive Plan.
The Plan provides a roadmap for the district to operate over the next ten years and beyond.
The planning area for the 2023 Plan encompasses the Springfield urban growth boundary
and the district boundary, which extends outside the urban growth boundary in certain areas,
as shown in Figure 4. In addition, developed areas annexed by the City of Springfield are
automatically annexed to the District. Willamalane owns 1,630 acres of land and 45 facilities
within the District boundary. (2023 Plan, p. 51, Table 9)
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Adopting the 2023 Plan will not hasten, slow down, or otherwise influence the transition of
rural land to urban land use; therefore, it is consistent with Goal 14. Based on these findings,
the proposed amendments are consistent with Goal 14.
Goal 15: Willamette River Greenway
To protect, conserve, enhance and maintain the natural, scenic, historical,
agricultural, economic and recreational qualities of lands along the Willamette
River as the Willamette River Greenway.
Goal 15 aims to protect, conserve, enhance, and maintain the natural scenic, historical,
agricultural, economic, and recreational qualities of lands along the Willamette River.
Willamalane has several current and proposed parks and properties within the Willamette
River Greenway.
The findings from at Metro Plan D. Willamette River Greenway, River Corridors and
Waterways Element are incorporated by reference herein. Based on these findings, the
proposed amendments are consistent with Goal 15.
Goal 16 Estuarine Resources, Goal 17 Coastal Shorelands, Goal 18 Beaches
and Dunes, and Goal 19 Ocean Resources
These goals do not apply within the Springfield urban growth boundary or Metro Plan
boundary.
Compliance with Applicable Administrative Rules of Chapter 660, Division 034, 033,
and 023
Applicable administrative rules are those establishing policies and procedures for the
planning and zoning of state and local parks to address the recreational needs of the citizens
of the state (OAR Chapter 660, Division 034, Section 0000), and secondarily, those
implementing the requirements for agricultural land as defined by Goal 3 (OAR Chapter 660,
Division 33, Section 0010), and those implementing the requirements for open space as
defined by Goal 5 (OAR Chapter 660, Division 023, Section 0220).
OAR 660-034-0040(1) refers to requirements for implementing “local park master plans” as
part of the local comprehensive plan. There is no definition for “local park master plans” in
Division 34. Sections (1)(a) and (1)(b) of 660-034-0040 apply to the adoption of a site-
specific park master plan. Since the proposed Comprehensive Plan Amendment is for the
adoption of a comprehensive, system-wide plan for parks and recreation and not a site-
specific park master plan, the rule does not apply.
Even if it were assumed that the proposed 2023 Plan was synonymous with the definition of
a “local park master plan” in Division 34, the 2023 Plan would be consistent with the Rule's
intent. The relevant text is below:
OAR 660-034-0040
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(1) … If a local government decides to adopt a local park plan as part of the local
comprehensive plan, the adoption shall include:
(a) A plan map designation, as necessary, to indicate the location and
boundaries of the local park; and
The City of Springfield has an adopted and acknowledged property-specific Comprehensive
Plan Map.16 The map clarifies the location of plan designations by interpreting the Metro
Plan Diagram for each property within Springfield’s urban growth boundary. The 2023 Plan
includes a Map of Proposed Park System Improvements (2023 Plan, Figure 36, p. 114) and
a Map of Path and Trail Project List and Recommendations Map (2023 Plan, Figure 37, p.
115) that show the location of parks, indoor facilities, and multi-use paths and identifies
short-term, mid-term, and long-term projects. The 2023 Plan replaces and supersedes all
previously adopted Park and Recreation Comprehensive Plans. The 2023 Plan is adopted
as Springfield’s acknowledged Goal 8 Comprehensive Plan element. Therefore, the
proposed amendments are consistent with the rule.
(b) Appropriate zoning categories and map designations (a “local park” zone
or overlay zone is recommended), including objective land use and siting
review criteria, in order to authorize the existing and planned park uses
described in the local park master plan. (OAR 660-034-0040(1)(a)(b))
Existing City of Springfield zoning categories are sufficient, as they relate to existing parks
and facilities, not proposed projects. The rule also provides that “a local government is not
required to adopt an exception to Statewide Planning Goals 3 or 4 for [these uses] on
agricultural or forest land within a local park provided such uses, alone or in combination,
meet all other statewide goals and are each use must be described and authorized in a local
park master plan” that has been adopted as part of the local comprehensive plan (OAR 660-
034-0040(4)(a)).
The proposed 2012 Plan is consistent with this rule. The findings under Goal 3: Agricultural
Lands are incorporated by reference herein. Lastly, OAR 660-023-0220 defines “open
space” to include parks. It allows local governments to:
(2) “…adopt a list of significant open space resource sites as an open space
acquisition program. Local governments are not required to apply the
requirements of OAR 660-023-0030 through 660-023-0050 [Inventory Process]
to such sites unless land use regulations are adopted to protect such sites prior
to acquisition.” (OAR 660-023-0220(3))
16 Ordinance 6463; Adopted November 20, 2023.
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A list of proposed natural area parks is included in the proposed 2023 Plan. Some of those
sites are not yet in public ownership. However, their location is generalized in nature, and
there are no land use regulations being proposed to protect such sites before acquisition.
The above findings demonstrate that the proposed amendments are consistent with this rule.
This criterion is satisfied.
Applicable State Statutes
Applicable state statutes are those authorizing and implementing the state and local park
planning administrative rule, and those allowing park uses in exclusive farm use zones.
Authorizing statutes for Oregon Administrative Rule (OAR) Chapter 660, Division 034, State
and Local Park Planning, are Oregon Revised Statute (ORS) Chapter 183, ORS Chapter
195, and ORS Chapter 197. Statutes implemented by OAR Chapter 660, Division 034, State
and Local Park Planning, are the following:
ORS Chapter 195 (Local Government Planning Coordination) Section 120 (Rules and
planning goal amendments for parks required; allowable uses; application of certain
land use laws) through Section 125 (Existing uses in state parks; approval by local
governments)
ORS Chapter 197 (Comprehensive Land Use Planning Coordination), Section 040
(Land Conservation and Development Commission -- Duties of Commission; rules);
and section 225 (Goals Compliance – Preparation; adoption) through Section 245
(Commission amendment of initial goals; adoption of new goals)
ORS Chapter 215 (County Planning; Zoning; Housing Codes), Section 213 (Uses
permitted in exclusive farm use zones in counties that adopted marginal lands system
prior to 1993)
ORS Chapter 215 (County Planning; Zoning; Housing Codes), Section 213 (Uses
permitted in exclusive farm use zones in counties that adopted marginal lands system
prior to 1993)
The discussion and findings in the preceding section of this application demonstrate that the
2023 Plan is consistent with the Metro Plan. The discussion and findings in the following
section of this application demonstrate that the 2023 Plan is consistent with the Springfield
Comprehensive Plan. The following section includes discussion and findings demonstrating
consistency with applicable Statewide Planning Goals and administrative rules. Since the
Metro Plan, the Springfield Comprehensive Plan, the Goals, and the administrative rules all
specifically implement the authorizing statutes, this application, therefore, also demonstrates
that the 2023 Plan is consistent with applicable state statutes.
This criterion is satisfied.
(B) Plan inconsistency:
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3.2 The Metro Plan
(1) In those cases where the Metro Plan applies, adoption of the
amendment shall not make the Metro Plan internally inconsistent.
The proposed amendments include amendments to the Metro Plan text to update the
Preface section to reflect the adoption of the 2023 Plan as an element of the Springfield
Comprehensive Plan. The amendments also update Section III-H. Parks and Recreation
Facilities Element (Metro Plan, p. III-H-2) to note that the 2023 Plan is the Parks and
Recreation Element of the Springfield Comprehensive Plan and to refer to that plan for the
adopted approach to parks and recreation system planning. The proposed Metro Plan
amendments are included as Exhibit A.
Metro Plan Fundamental Principles and Specific Elements are written in bold, relevant
approval criteria are summarized in italics, followed by findings of fact in normal text.
Springfield has previously adopted the following elements of its Comprehensive Plan:
• Economic
• Residential Land Use and Housing
• Recreation
• Transportation
• Urbanization
The Economic and Urbanization elements supplant the Economic and Urban and
Urbanizable Elements of the Metro Plan.17 The goals, policies, and implementation actions in
the Springfield Residential Land and Housing Element are consistent and carry out the
Residential Land Use and Housing Element.18 The policies in the Residential Land Use and
Housing Element of the Springfield Comprehensive Plan supplement, refine, and support the
Residential Land Use and Housing policies of the Metro Plan but do not replace those
policies.19 The Recreation Element of the Springfield Comprehensive Plan is the
Willamalane Park and Recreation Comprehensive Plan.20 The Transportation Element of the
Springfield Comprehensive Plan is the Springfield 2035 Transportation System Plan.21
Based on the preceding findings, these Metro Plan elements do not apply to the proposed
amendments.
All other Metro Plan policies were evaluated concerning their applicability to the 2023 Plan,
and the following policies were found to be applicable to the request. The findings
17 Metro Plan, p. II-E-1 and p. III-B-1.
18 Springfield Residential Lane Use & Housing element, p. 27.
19 Metro Plan, p. III-A-1.
20 Springfield Comprehensive Plan, p. iv.
21 Springfield Comprehensive Plan, p. iv.
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demonstrate how the 2023 Plan is consistent with, and in fact, supported by, the policy
directions contained in the Metro Plan. The 2023 Plan meets the criteria as follows:
C. Environmental Resources Element
The Environmental Resources Element addresses natural assets and hazards in the
metropolitan area. There is significant correlation between the first two goals of this element
and the proposed 2023 Plan:
Goals
1. Protect valuable natural resources and encourage their wise management, use,
and proper reuse. (Metro Plan, p. III-C-3)
2. Maintain a variety of open spaces within and on the fringe of the developing area.
(Metro Plan, p. III-C-3)
The following Metro Plan policies relate to 2023 Plan goals and strategies:
Policy C.5: Metropolitan goals relating to scenic quality, water quality, vegetation and
wildlife, open space, and recreational potential shall be given a higher priority than
timber harvest within the urban growth boundary. (Metro Plan, p. III-C-6)
Policy C.21: When planning for and regulating development, local governments shall
consider the need for protection of open spaces, including those characterized by
significant vegetation and wildlife. Means of protecting open space include but are not
limited to outright acquisition, conservation easements, planned unit development
ordinances, streamside protection ordinances, open space tax deferrals, donations to
the public, and performance zoning. (Metro Plan, p. III-C-14)
Willamalane owns 1,630 acres of land and 45 facilities within the District boundary, including
six parks classified as Natural Area Parks.22 (2023 Plan, p. 47 Table 9B; 2023 Plan, p. 51,
Table 9C)
Plan Strategy 5.2 involves proactively managing existing natural areas and supports the
goals and policies in the Environmental Resources Element of the Metro Plan. (2023 Plan,
p. 106)
22 Eastgate Woodlands of the Whilamut Natural Area, Georgia Pacific Natural Area, Harvest Landing,
Moe Mountain Natural Area, Thurston Hills Natural Area, Weyerhaeuser McKenzie Natural Area.
2023 Plan, p. 47.
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“Action 5.2.a: Continue to collaborate with and foster positive relationships with
community partners, local tribes, and American Indian and Alaska Native community
members to manage and maintain Willamalane’s natural areas.” (2023 Plan, p. 106)
“Action 5.2.b: Develop management plans for natural areas that * * * do not currently
have plans in place.” (2023 Plan, p. 106)
“Action 5.2.c: Develop annual work plans for effective management of natural areas.”
(2023 Plan, p. 106)
“Action 5.2.d: Increase and sustain resources and staffing to account for prior and
future natural area acquisitions, using comparable agencies as benchmarks.” (2023
Plan, p. 106)
“Action 5.2.e: Work with partners to enhance habitat and public access to non-
Willamalane properties, including: Maple Island Slough, Cedar Creek, Bureau of Land
Management property, Lane County property, TEAM Springfield property, McKenzie
River and Willamette River.” (2023 Plan, p. 106)
“Action 5.2.f: Update Willamalane’ s Natural Area Management Plan to incorporate
natural areas acquired since the plan was created. This plan should identify priority
habitats and opportunities for future expansion.” (2023 Plan, p. 105)
In addition, the 2023 Plan includes twenty-five projects specifically related to acquiring and
developing Natural Area Parks, included below: (2023 Plan, Appendix 11)
Project S2 Dorris Ranch (Master Plan)
Project S9 Georgia Pacific Natural Area (Improve)
Project S23 Moe Mountain Natural Area (Acquisition)
Project S24 Thurston Hills Natural Area (Acquisition)
Project S25 McKenzie River Multi-use Path (Improve)
Project S27 Gary Walker Trail System at Dorris Ranch (Improve)
Project S28 Thurston Hills Natural Area (Improve)
Project S29 Thurston Hills Natural Area South Trailhead (Improve)
Project M4 Weyerhaeuser McKenzie Natural Area (Master Plan)
Project M5 Bob Artz Memorial Park (Improve)
Project M8 Eastgate Woodlands of the Wilamut Natural Area (Expansion)
Project M24 Harvest Landing (Acquisition)
Project M25 New Park in Area J (Acquisition)
Project M30 Glenwood Riverfront Multi-use Path West (Improve)
Project M31 Moe Mountain Natural Area Multi-use Path Construction (Improve)
Project M33 Bridge to Howard Buford Recreation Area (Connect)
Project M35 Thurston Hills Natural Area North Trailhead (Improve)
Project L1 Clearwater Park (Improve)
Project L11 Weyerhaeuser McKenzie Natural Area (Expansion)
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Project L17 Glenwood Riverfront Multi-use Path South (Improve)
Project L18 Glenwood Riverfront Multi-use Path West (Improve)
Project 04 Thurston Hills Natural Area Expansion
Project O7 Thurston Hills Natural Area (Acquisition)
Project 08 Willamette Heights (Acquisition)
Project 09 Booth Kelly/Mill Pond Park (Improve)
Project O10 Glenwood Riverfront (Acquisition)
Project O11 Jasper Meadows Wetland Park
Project O18 South Jasper Natron Wetland Park
Project O19 McKenzie Riverfront & Cedar Creek
Based on these findings, the 2023 Plan is consistent with the Environmental Resources
Element of the Metro Plan. The findings under Goal 5: Open Spaces, Scenic and Historic
Areas, and Natural Resources are incorporated by reference herein.
D. Willamette River Greenway, River Corridors, and Waterway Element
The goal of this element is to protect, conserve, and enhance the natural, scenic,
environmental and economic qualities of river and waterway corridors. (Metro Plan, III-D-3)
Relevant policies from this element include:
Policy D.2: Land use regulations and acquisition programs along river corridors and
waterways shall take into account all the concerns and needs of the community,
including recreation … (Metro Plan, p. III-D-4)
Policy D.3: Eugene, Springfield, and Lane County shall continue to cooperate in
expanding water-related parks and other facilities, where appropriate, that allow
access to and enjoyment of river and waterway corridors. (Metro Plan, p. III-D-4)
Policy D.4: …Springfield’s efforts to improve the scenic quality of its Millrace should
be encouraged. (Metro Plan, p. III-D-4)
Policy D.8: Within the framework of mandatory statewide planning goals, local
Willamette River Greenway plans shall allow a variety of means for public enjoyment
of the river, including public acquisition areas … (Metro Plan, p. III-D-5)
Policy D.9: Local and state governments shall continue to provide adequate public
access to the Willamette River Greenway. (Metro Plan, p. III-D-5)
Two rivers border the City of Springfield, thus river access and river corridor protection,
conservation, and enhancement are key elements of the proposed 2023 Plan. Willamalane
currently operates two parks along the main stem of the Willamette River.23 Three additional
23 Eastgate Woodlands of the Whilamut Natural Area and Island Park. 2023 Plan, Figure 36.
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parks are located along the middle fork of the Willamette River.24 Two parks are located on
the McKenzie River.25 In addition, Willamalane operates multi-use facilities paths along the
Willamette River.26
The 2023 Plan includes twenty-four projects that support the Metro Plan Willamette River
Greenway, River Corridor, and Waterway Element goals and policies by improving and
enhancing access to rivers and waterways through park, bridge, and multi-use path design,
development, and acquisition: (2023 Plan, Appendix 11)
Project S4 Island Park Design
Project S7 West D St. Greenway Master Plan
Project S9 Georgia Pacific Natural Area
Project S25 McKenzie River Multi-use Path
Project M1 McKenzie River Boat Access
Project M4 Weyerhaeuser McKenzie Natural Area
Project M8 Eastgate Woodlands of the Whilmut Natural Area
Project M12 Mill Race Park
Project M24 Harvest Landing
Project M30 Glenwood Riverfront Multi-use Path West
Project M32 Bridge to Glenwood at Island Park
Project M33 Bridge to Howard Buford Recreation Area
Project M34 Clearwater Park Trails
Project L1 Clearwater Park
Project L3 Island Park
Project L11 Weyerhaeuser McKenzie Natural Area
Project L17 Glenwood Riverfront Multi-use Path South
Project L18 Glenwood Riverfront Multi-use Path West
Project L19 Bridge to Glenwood at Island Park
Project L20 Bridge to Howard Buford Recreation Area
Project L21 Bridge to Glenwood at Dorris Ranch
Project 09 Booth Kelly / Mill Pond Park
Project O10 Glenwood Riverfront (Acquisition)
Project O19 McKenzie Riverfront & Cedar Creek (Acquisition)
Based on these findings, the proposed 2023 Plan is consistent with the Willamette River
Greenway, River Corridors, and Waterway Element of the Metro Plan. The findings at Goal
15: Willamette Greenway are incorporated by reference herein.
E. Environmental Design Element
The Goals of the Environmental Design Element are to:
24 Dorris Ranch, Georgia Pacific Natural Area, and Clearwater Park. 2023 Plan, Figure 36
25 Harvest Landing and Weyerhauser McKenzie Natural Area. 2023 Plan, Figure 36.
26 West D Street Greenway and Middle Fork Path. 2023 Plan, Figure 37.
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1. Secure a safe, clean, and comfortable environment which is satisfying to the mind
and senses. (Metro Plan, p. III-E-1)
2. Encourage the development of the natural, social, and economic environment in a
manner that is harmonious with our natural setting and maintains and enhances
our quality of life. (Metro Plan, p. III-E-1)
3. Create and preserve desirable and distinctive qualities in local and neighborhood
areas. (Metro Plan, p. III-E-1)
Relevant Metro Plan policies include:
Policy E.1: In order to promote the greatest possible degree of diversity, a broad
variety of commercial, residential, and recreational land uses shall be encouraged
when consistent with other planning policies. (Metro Plan, p. III-E-3)
Policy E.4: Public and private facilities shall be designed and located in a manner
that preserves and enhances desirable features of local and neighborhood areas and
promotes their sense of identity. (Metro Plan, p. III-E-3)
Policy E.5: Carefully develop sites that provide visual diversity to the urban area and
optimize their visual and personal accessibility to residents. (Metro Plan, p. III-E-3)
The Environmental Design Element of the Metro Plan sets broad goals and policies for the
desired qualities of life in the Eugene-Springfield area.
Several strategies in the 2023 Plan address environmental design considerations, including
accessibility, safety, connectivity, educational and interpretive elements, public art, and
sustainability, as provided below:
“Strategy 2.1: Improve existing parks to enhance the district’s current level of service.”
(2023 Plan, p. 98)
“Strategy 2.2: Expand acreage and recreation offerings to accommodate population
growth and provide parks and recreation opportunities in underserved areas.” (2023
Plan, p. 100)
“Strategy 2.3: Improve and enhance the district’s sustainability initiatives.” (2023 Plan, p.
101)
“Strategy 3.1: Improve connectivity and access to existing paths and trails.” (2023 Plan,
p. 102)
“Strategy 3.2: Provide a desirable experience for trail users.” (2023 Plan, p. 103)
“Strategy 4.1: Add or expand facilities to best meet user demand in the district.” (2023
Plan, p. 104)
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“Strategy 5.1: Maintain a high standard of care for parks and open spaces.” (2023 Plan,
pg. 105)
Based on these findings, the proposed 2023 Plan is consistent with the Environmental
Design Element of the Metro Plan.
G. Public Facilities and Services Element
This element directs the future provision of urban facilities and services to planned land uses
within the Metro Plan boundary. Parks and recreation facilities and services are among
those discussed in the Element’s introductory section; however, they are addressed in detail
in the Parks and Recreation Facilities Element. One area of correlation in the Public
Facilities and Services Element relates to joint school/park use:
Finding 33: Combining educational facilities with local park and recreation facilities
provides financial benefits to the schools while enhancing benefits to the community.
(Metro Plan, III-G-10)
Policy G.21: The use of school facilities for non-school activities and appropriate
reimbursement for this use. (Metro Plan, III-G-11)
The 2023 Plan is the product of extensive public participation and interagency collaboration.
One of the 2023 Plan’s community engagement focus areas is to “continue to grow
partnerships with Springfield Public Schools.” (2023 Plan, p. 33)
Specific to Natural Areas, the 2023 Plan notes that “there are also many opportunities to
integrate green spaces throughout the urban core of Springfield with improvements such as
green infrastructure, expansion of urban forests, and small nature trails within developed
parks. Springfield Public Schools, the City of Springfield, and the Springfield Utility Board are
all public agencies with large land holdings that, through further collaboration, could increase
efficiencies and impact of Willamalane’s natural resource efforts.” (2023 Plan, p. 52)
The 2023 Plan includes specific projects that involve interagency coordination and reinforce
Willamalane’s commitment to collaboration with the Springfield Public Schools, City of
Springfield, EWEB, and other partners, including: (2023 Plan, Appendix 11)
Project S1 Booth Kelly Trailhead to Middle Fork Path Connector (City of
Springfield)
Project S3 Guy Lee Park / Elementary (Springfield Public Schools)
Project S7 West D St. Greenway Master Plan (Metropolitan Wastewater
Management)
Project S8 Gamebird Park and Garden (Springfield Public Schools)
Project S9 Georgia Pacific Natural Area (SUB, City of Springfield)
Project S13 Willamalane Park (Springfield Public Schools)
Project S15 Bob Artz Memorial Park (Springfield Public Schools)
Project S25 McKenzie River Multi-use Path (City of Springfield)
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Project S29 Thurston Hills Natural Area South Trailhead (Springfield Public
Schools)
Project S35 Centennial Elementary (Springfield Public Schools)
Project 36 Maple Elementary (Springfield Public Schools)
Project 37 Riverbend Elementary (Springfield Public Schools)
Project M1 McKenzie River Boat Access (EWEB)
Project M4 Weyerhaeuser McKenzie Natural Area (City of Springfield)
Project M5 Bob Artz Memorial Park (Springfield Public Schools)
Project M8 Eastgate Woodlands of the Whilamut Natural Area (Citizen Planning
Committee)
Project M9 Guy Lee Park (Springfield Public Schools, City of Springfield)
Project M13 Page Park (Springfield Public Schools)
Project M15 Douglas Gardens Park (Springfield Public Schools)
Project M22 New Neighborhood or Special Use Park (City of Springfield)
Project M24 Harvest Landing (Lane County)
Project M27 Booth Kelly Trailhead to Island Park Connector (City of Springfield)
Project M28 Booth Kelly Trailhead to Middle Fork Path Connector (City of
Springfield)
Project M29 By-Gully Path Extension (City of Springfield)
Project M30 Glenwood Riverfront Multi-use Path West (City of Springfield)
Project M32 Bridge to Glenwood at Island Park (City of Springfield)
Project M33 Bridge to Howard Buford Recreation Area (multiple partners)
Project L2 Douglas Gardens Park (Springfield Public Schools)
Project L5 Kelly Butte Overlook (Rainbow Water District)
Project L11 Weyerhaeuser McKenzie Natural Area (City of Springfield)
Project L14 Booth Kelly Road Multi-use Path (City of Springfield)
Project L15 EWEB Path Extension to Don St. (City of Springfield, EWEB)
Project L16 EWEB Path Extension to Laura St. (City of Springfield, EWEB)
Project L17 Glenwood Riverfront Multi-use Path South (City of Springfield)
Project L18 Glenwood Riverfront Multi-use Path West (City of Springfield)
Project L19 Bridge to Glenwood at Island Park (City of Springfield)
Project L20 Bridge to Howard Buford Recreation Area (multiple partners)
Project L21 Bridge to Glenwood at Dorris Ranch (Lane County, City of Springfield)
Project O1 EWEB Path On-Street Connection (City of Springfield)
Project O2 Middle Fork and Mill Race Path North Extensions (City of Springfield)
Project O9 Booth Kellly / Mill Pond Park (City of Springfield)
Project O10 Glenwood Riverfront (City of Springfield)
Project O20 Safe Access to Willamalane Park (City of Springfield)
Project O21 By-Gully Path Improvements (City of Springfield)
Project O22 Downtown Urban Park / Plaza (Team Springfield)
Project O23 EWEB Path Improvements (EWEB)
Based on these findings, the proposed 2102 Plan is consistent with the Public Facilities and
Services Element of the Metro Plan.
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I. Historic Preservation Element
The goal of the Historic Preservation Element of the Metro Plan is to preserve and restore
reminders of our origin and historic development as links between past, present, and future
generations (Metro Plan, III-I-1).
Relevant Metro Plan policies include:
Policy 2: Institute and support projects and programs that increase citizen and visitor
awareness of the area’s history and encourage citizen participation in and support of
programs designed to recognize and memorialize the area’s history. (Metro Plan, III-
I-2)
Several actions in the 2023 Plan address the preservation and protection of historic and
cultural resources, as provided below:
“Action 2.1.i: Work with community partners to actively preserve and protect historic and
cultural resources in the district.”
Action 2.1.j: Continually update the Historic and Cultural Resources Management Plan to
[integrate] best practices into the management of historic and cultural resources within
the district.” (2023 Plan, p. 98)
“Action 5.1.o: Explore expansion of the Dorris Ranch Historic District to include the Briggs
House during implementation of the Dorris Ranch Master Plan improvements.” (2023
Plan, p. 105)
“Action 5.4.b.: Assess and plan for opportunities to improve the function of existing
facilities, including renovations to locker rooms, parking lots, entrance lobbies, historic
and cultural resources, etc.” (2023 Plan, p. 106)
Willamalane owns and operates Dorris Ranch, a 258-acre living history park on the National
Register of Historic Places. Relevant projects in the 2023 Plan directed at preserving and
restoring historic places include: (2023 Plan, Appendix 11)
Project S2 Dorris Ranch (Master Plan)
Project S27 Gary Walker Trail System at Dorris Ranch
Project M7 Dorris Ranch (Improvements)
Based on these findings, the proposed 2012 Plan is consistent with the Historic Preservation
Element of the Metro Plan.
J. Energy Element
The first goal of the Energy Element of the Metro Plan is to maximize the conservation and
efficient utilization of all types of energy (Metro Plan, III-J-1). There is one policy relevant to
the proposed 2012 Plan:
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Comprehensive Plan Amendment Application December 14, 2023
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Policy J.8: Commercial, residential, and recreational land uses shall be integrated to the
greatest extent possible, balanced with all planning policies to reduce travel distances,
optimize reuse of waste heat, and optimize potential on-site energy generation. (Metro
Plan, III-J-5)
The 2023 Plan includes a strategy directed at enhancing sustainability initiatives:
“Strategy 2.3: Improve and Enhance the District’s sustainability initiatives.” (2023 Plan, p.
101)
Additional actions are aimed at energy efficiency, energy conservation, and sustainable
development. The following actions are relevant to the Energy Element:
“Action 2.3.a: Limit the district’s carbon footprint. Create an internal sustainability plan
with measurable goals and action items.
Action 2.3.b: Consider design standards and horticultural practices that feature native
and drought-resistant plants to conserve water.
Action 2.3.c: Help ensure all current and future park and facility lighting is as energy
efficient as possible (e.g. LED). Consider dark sky compliant lighting where possible.
Action 2.3.d: Expand recycling program in district parks and facilities. (9.2)
Action 2.3.e: Work with local partners to identify and address green infrastructure needs
throughout the park system.
Action 2.3.f: Prioritize environmentally [conscience] and energy [efficient] alternatives
when replacing district’s gas-powered vehicle fleet and maintenance equipment.” (2023
Plan, p. 101)
Based on these findings, the proposed 2023 Plan is consistent with the Energy Element of
the Metro Plan.
K. Citizen Involvement Element
The goal of the Citizen Involvement Element of the Metro Plan is to continue to develop,
maintain, and refine programs and procedures that maximize the opportunity for meaningful,
ongoing citizen involvement in the community’s planning and planning implementation
processes consistent with mandatory statewide planning standards. (Metro Plan, III-K-1)
The following Metro Plan policy is relevant to the 2012 Plan:
Policy K.3: Improve and maintain local mechanisms that provide the opportunity for
residents and property owners in existing residential areas to participate in the
implementation of policies in the Plan that may affect the character of those areas. (Metro
Plan, III-K-3)
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The findings under Goal 1: Citizen Involvement are incorporated by reference herein.
Based on these findings, the proposed 2023 Plan is consistent with the Citizen Involvement
Element of the Metro Plan.
This criterion is satisfied.
3.3 Springfield Comprehensive Plan
(2) In cases where Springfield Comprehensive Plan applies, the
amendment shall be consistent with the Springfield Comprehensive
Plan. (6331)
The Springfield Comprehensive Plan states that the Recreation Element is the Willamalane
Park and Recreation Comprehensive Plan.27 The 2023 Plan notes that “an integral part of
the planning process was to create a plan consistent with other local planning documents
and in compliance with Goal 8 * * *.” (2023 Plan, p. 20)
The 2023 Plan updates the 2012 Willamalane Park and Recreation Comprehensive Plan.
The Plan provides a roadmap for the district to operate over the next ten years and beyond.
The planning area for the 2023 Plan encompasses the Springfield urban growth boundary
and the district boundary, which extends outside the urban growth boundary in certain areas,
as shown in Figure 4. In addition, developed areas annexed by the City of Springfield are
automatically annexed to the District. Willamalane owns 1,630 acres of land and 45 facilities
within the District boundary. (2023 Plan, p. 51, Table 9)
In 2020, the population within the urban growth boundary was estimated at 70,337. The
2023 Plan projects that the population will increase to over 75,159 by 2035. (2023 Plan, p.
23, Figure 8)
The planning process for the 2023 Plan included an extensive public input process involving
the general public and partner governing agencies. The 2023 Plan, adopted by Resolution
No. 23-24.01, replaces, and supersedes all previously adopted Park and Recreation
Comprehensive Plans. (2023 Plan, p. I). The 2023 Plan is adopted as Springfield’s
acknowledged Recreation Comprehensive Plan element.
Based on these findings, the proposed amendments are consistent with this criterion.
27 Springfield Comprehensive Plan, p. iv.
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Comprehensive Plan Amendment Application December 14, 2023
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3.4 Conclusion
The Willamalane Park and Recreation District Comprehensive Plan, dated September 13,
2023, was adopted by the Willamalane Board of Directors by Resolution No. 23-24.01. The
2023 Plan supersedes and replaces the 2012 Willamalane Park and Recreation
Comprehensive Plan (“2012 Plan”). The proposed amendments adopt the 2023 Willamalane
Park and Recreation District Comprehensive Plan.
Willamalane is designated in the Metro Plan as the park and recreation service provider for
Springfield and its urbanizable area. A 1995 Intergovernmental Agreement (IGA) between
the City and Willamalane requires the two agencies to collaborate in planning for parks,
recreation, and open space. The IGA designates Willamalane as the agency responsible for
preparing and updating a park and recreation comprehensive plan, and it specifies that the
comprehensive plan shall be adopted as a refinement plan to the Metro Plan. The proposed
amendments (Exhibit A) update the Metro Plan for consistency.
The 2023 Plan meets or exceeds the applicable criteria concerning consistency with the
Springfield Comprehensive Plan, Metro Plan, applicable state statutes, and applicable
Statewide Planning goals and administrative rules.
The findings contained in this application provide a substantive basis for Springfield and
Lane County to adopt the 2023 Willamalane Park and Recreation District Comprehensive
Plan.
Willamalane Park and Recreation District
2023 Comprehensive Plan
Comprehensive Plan Amendment Application December 14, 2023
EXHIBITS
EXHIBITS
Willamalane Park and Recreation District
2023 Comprehensive Plan
Comprehensive Plan Amendment Application December 14, 2023
A
EXHIBIT A
METRO PLAN AMENDMENTS
Willamalane Park and Recreation District
2023 Comprehensive Plan
Comprehensive Plan Amendment Application December 14, 2023
B
EXHIBIT B
2023 WILLAMALANE PARK AND RECREATION
DISTRICT COMPREHENSIVE PLAN
Willamalane Park and Recreation District
2023 Comprehensive Plan
Comprehensive Plan Amendment Application December 14, 2023
C
EXHIBIT C
2023 WILLAMALANE PARK AND RECREATION
DISTRICT COMPREHENSIVE PLAN APPENDICES
1
AGENDA
DEVELOPMENT REVIEW
COMMITTEE
DEVELOPMENT SERVICES DEPARTMENT
225 FIFTH STREET
Conference Room 616 / MS Teams
Staff Review: Tuesday, January 30, 2024 9:00 – 9:30 a.m.
1. Metro Plan Amendment 811-23-000285-TYP4 Willamalane Park & Recreation District
Assessor’s Map: & TL: Various
Address: various
Existing Use: PLO
Applicant Submitted plans to amend the Metro Plan to reflect co-adoption of the 2023
Willamalane Park & Recreation District Comprehensive Plan.
Planner: Monica Sather
Meeting: Tuesday, January 30, 2024 9:00 – 9:30 virtual meeting via Microsoft Teams
The Complete DRC Packet for this meeting is available online for you to review or print out
from the laserfiche website: https://www.springfield-or.gov/weblink8/browse.aspx