HomeMy WebLinkAboutOrdinance No. 6471 CITY OF SPRINGFIELD, OREGON
ORDINANCE NO. 6471 (GENERAL)
AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL
PLAN (METRO PLAN) DIAGRAM BY REDESIGNATING APPROXIMATELY 4.99 ACRES OF LAND
FROM CAMPUS INDUSTRIAL (CI) TO COMMERCIAL (C); CONCURRENTLY AMENDING THE
GATEWAY REFINEMENT PLAN DIAGRAM TO REDESIGNATE THE SAME 4.99 ACRES OF LAND
FROM CAMPUS INDUSTRIAL (CI) TO COMMUNITY COMMERCIAL(CC); CONCURRENTLY
AMENDING THE SPRINGFIELD ZONING MAP BY REZONING THE SAME 4.99 ACRES OF LAND
FROM CAMPUS INDUSTRIAL (CI) TO MEDICAL SERVICES (MS); ADOPTING A SEVERABILITY
CLAUSE AND PROVIDING AN EFFECTIVE DATE
THE CITY COUNCIL OF THE CITY OF SPRINGFIELD FINDS THAT:
WHEREAS, Springfield Development Code (SDC) 5.14.100 sets forth procedures for Metro Plan
diagram amendments; and
WHEREAS, SDC 5.14.115(A) classifies amendments to the Metro Plan diagram for land inside the
Springfield City limits as being Type I Metro Plan amendments that require approval by Springfield only;
and
WHEREAS, SDC 5.14.125(A) sets forth procedures for property owners to initiate a Type I Metro Plan
diagram amendment for property under their ownership; and
WHEREAS, the applicant/owner of the subject property initiated Type I Metro Plan diagram amendment
as follows:
Redesignate approximately 4.99 acres of property that is located at the northeast corner of the
intersection of Game Farm Road and Maple Island Road, identified as Assessor's Map 17-03-15-
40, Tax Lot 1000 and Portions of Tax Lots 800, 900 & 1100, as generally depicted and more
particularly described in Exhibit A to this Ordinance, from Campus Industrial to Commercial; and
WHEREAS, SDC 5.14.120(D) provides that when a Metro Plan diagram amendment is enacted that
requires an amendment to a refinement plan for consistency, the Metro Plan diagram amendment
automatically amends the refinement plan diagram if no amendment to the refinement plan text is
involved; and
WHEREAS, pursuant to SDC 5.14.120(D) the Gateway Refinement Plan diagram has been amended as
follows:
Redesignate approximately 4.99 acres of property that is located at the northeast corner of the
intersection of Game Farm Road and Maple Island Road, identified as Assessor's Map 17-03-15-
40, Tax Lot 1000 and Portions of Tax Lots 800, 900 & 1100, as generally depicted and more
particularly described in Exhibit A to this Ordinance, from Campus Industrial to Community
Commercial; and
WHEREAS, SDC 5.22.110 sets forth procedures for property owners to initiate an amendment to the
Springfield Zoning Map; and
WHEREAS, SDC 5.22.110(A)(1) sets forth procedures for concurrent amendments to the Metro Plan
diagram and Springfield Zoning Map through the Legislative Zoning Map amendment process; and
WHEREAS the applicant/owner of the subject property initiated the following Springfield Zoning Map
amendment:
Rezone approximately 4.99 acres of property identified herein as Assessor's Map 17-03-15-40,
Tax Lot 1000 and Portions of Tax Lots 800, 900 & 1100, as generally depicted and more
particularly described in Exhibit A to this Ordinance, from Campus Industrial to Medical Services;
and
WHEREAS, on November 7, 2023 the Springfield Planning Commission conducted a public hearing on
the proposed Metro Plan diagram amendment request and concurrent request for Zoning Map
amendment; the Development & Public Works Department staff reports, including criteria of approval,
findings and recommendations, together with the testimony and submittals of the persons testifying at
that hearing, were considered and were made a part of the record of the proceeding; and
WHEREAS, at the regular meeting on November 7, 2023 the Planning Commission conducted
deliberations and voted four (4) in favor and none (0) opposed to forward recommendations of approval
to the City Council for the proposed Metro Plan diagram and Zoning Map amendments; and
WHEREAS, on January 2, 2024 the City Council held a public hearing to receive testimony and hear
comments on the proposals; and
WHEREAS, The City Council is now ready to take action on these proposals with due consideration
given to the above recommendations of the Planning Commission and the evidence and testimony
already in the record, as well as the evidence and testimony presented at this public hearing held in the
matter of adopting this Ordinance amending the Metro Plan diagram and Springfield Zoning Map; and
WHEREAS, substantial evidence exists within the record and the findings set forth in Exhibits B & C,
attached hereto and incorporated herein by reference, that the proposal meets the relevant approval
criteria,
NOW, THEREFORE, BASED ON THE FOREGOING FINDINGS, THE COMMON COUNCIL OF THE
CITY OF SPRINGFIELD ORDAINS AS FOLLOWS:
Section 1. The above findings and conclusions are hereby adopted.
Section 2. The applicant narrative and staff reports and recommendations to this Ordinance
set forth in Exhibits B & C, attached hereto and incorporated herein by reference, are hereby adopted.
Section 3. The Metro Plan diagram designation of 4.99 acres of the subject property identified
herein as Assessor's Map 17-03-15-40, Tax Lot 1000 and Portions of Tax Lots 800, 900 & 1100,
generally depicted and more particularly described in Exhibit A attached hereto and incorporated herein
by reference, is hereby amended from Campus Industrial (CI) to Commercial (C).
Section 4. The Gateway Refinement Plan diagram designation of 4.99 acres of the subject
property identified herein as Assessor's Map 17-03-15-40, Tax Lot 1000 and Portions of Tax Lots 800,
900 & 1100, generally depicted and more particularly described in Exhibit A attached hereto and
incorporated herein by reference, is hereby amended from Campus Industrial (CI) to Community
Commercial (CC).
Section 5. The Springfield Zoning Map is hereby amended to rezone 4.99 acres of the
subject property identified as a portion of Assessor's Map 17-03-15-40, Tax Lot 1000 and Portions of Tax
Lots 800, 900 & 1100, generally depicted and more particularly described in Exhibit A attached hereto
and incorporated herein by reference, from Campus Industrial (CI) to Community Commercial (CC).
Ordinance No. 6471
Section 6. If any section, subsection, sentence, clause, phrase, or portion of this Ordinance is
for any reason held to be invalid or unconstitutional by any court of competent jurisdiction, that portion
shall be deemed a separate, distinct, and independent provision and that holding shall not affect the
validity of the remaining portion of this Ordinance.
Section 7. Notwithstanding the effective date of ordinances as provided by Section 2.110 of
the Springfield Municipal Code 1997, this ordinance shall become effective 30 days from the date of
passage by the City Council and approval by the Mayor or upon the date of acknowledgement as
provided in ORS 197.625, whichever date is later.
ADOPTED by the City Council of the City of Springfield this 29th day of .Tamlary 12024
by a vote of 6 for and 0 against.
APPROVED by the Council President of of the City of Springfield, functioning as Mayor in
accordance with Section 17 of the Springfield Charter this 29th day of January, 2024.
Council President
ATTEST:
REVIEWED&APPROVED
AS TO FORM
a DATE: 1/25/2024
City Recorder SPRINGFTFLO CITY ATTORNFY'S OFFICE
Ordinance No. 6471
Exhibit A Page 1 of 2
EXHIBIT A
PROPERTY REDESIGNATED FROM CAMPUS INDUSTRIAL TO COMMUNITY COMMERCIAL
AND REZONED FROM CAMPUS INDUSTRIAL TO MEDICAL SERVICES
International Way
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Game Farm Road Deadmond Ferry Road
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Ordinance No. 6471
Exhibit A Page 2 of 2
LEGAL DESCRIPTION
BEGINNING AT A 5/8-INCH REBAR FOUND; THENCE NORTH 88 DEGREES 16 MINUTES 33 SECONDS
WEST, A DISTANCE OF 237.55 FEET, MORE OR LESS TO A 5/8-INCH REBAR WITH YELLOW PLASTIC
CAP INSCRIBED " LS2609" FOUND; THENCE NORTH 88 DEGREES 16 MINUTES 19 SECONDS WEST, A
DISTANCE OF 22.10 FEET, MORE OR LESS; THENCE NORTH 63 DEGREES 55 MINUTES 41 SECONDS
WEST, A DISTANCE OF 18.74 FEET, MORE OR LESS; THENCE NORTH 60 DEGREES 32 MINUTES 51
SECONDS WEST, A DISTANCE OF 35.25 FEET, MORE OR LESS; THENCE WITH A CURVE TO THE
RIGHT, HAVING AN ARC LENGTH OF 45.62 FEET, WITH A RADIUS OF 70.00 FEET, HAVING A CHORD
BEARING OF NORTH 40 DEGREES 11 MINUTES 6 SECONDS WEST, AND WITH A CHORD LENGTH OF
44.82 FEET, MORE OR LESS; THENCE WITH A COMPOUND CURVE TO THE RIGHT, HAVING AN ARC
LENGTH OF 35.40 FEET, WITH A RADIUS OF 270.00 FEET, HAVING A CHORD BEARING OF NORTH 15
DEGREES 1 MINUTE 0 SECONDS WEST, AND WITH A CHORD LENGTH OF 35.37 FEET, MORE OR
LESS TO A BENT 1/2-INCH REBAR FOUND; THENCE NORTH 1 DEGREE 47 MINUTES 9 SECONDS
EAST, A DISTANCE OF 311.51 FEET, MORE OR LESS; THENCE WITH A CURVE TO THE RIGHT,
HAVING AN ARC LENGTH OF 41.75 FEET, WITH A RADIUS OF 100.00 FEET, HAVING A CHORD
BEARING OF NORTH 31 DEGREES 14 MINUTES 21 SECONDS EAST, AND WITH A CHORD LENGTH OF
41.45 FEET, MORE OR LESS; THENCE WITH A REVERSE CURVE TO THE LEFT, HAVING AN ARC
LENGTH OF 74.47 FEET, WITH A RADIUS OF 60.00 FEET, HAVING A CHORD BEARING OF NORTH 1
DEGREE 32 MINUTES 5 SECONDS EAST, AND WITH A CHORD LENGTH OF 69.78 FEET, MORE OR
LESS; THENCE SOUTH 88 DEGREES 12 MINUTES 51 SECONDS EAST, A DISTANCE OF 414.32 FEET,
MORE OR LESS; THENCE SOUTH 1 DEGREE 47 MINUTES 10 SECONDS WEST, A DISTANCE OF 523.27
FEET, MORE OR LESS; THENCE NORTH 88 DEGREES 16 MINUTES 33 SECONDS WEST, A DISTANCE
OF 66.30 FEET, MORE OR LESS TO A 5/8-INCH REBAR WITH YELLOW PLASTIC CAP INSCRIBED
"LS2609" FOUND; THENCE NORTH 51 DEGREES 18 MINUTES 18 SECONDS WEST, A DISTANCE OF
24.94 FEET, MORE OR LESS TO THE POINT OF BEGINNING, AND CONTAINING AN AREA OF 217,364
SQUARE FEET, OR 4.99 ACRES, MORE OR LESS.
BEARINGS IN THE DESCRIPTIONS ABOVE ARE BASED ON OREGON STATE PLANE COORDINATES,
SOUTH ZONE, NAD - 83, INTERNATIONAL FOOT.
Ordinance No. 6471
Exhibit B Page 1 of 17
Staff Report and Findings
Springfield City Council
Type 1 Amendment to the Metro Plan Diagram
Meeting Date: January 16,2024
File Number: 811-23-000182-TYP4
Applicant: Law Office of Micheal Reeder on behalf of PeaceHealth
Project Location: Northeast corner of the intersection of Game Farm Road and Maple Island Road
(Assessor's Map 17-03-15-40, Tax Lot 1000 and portions of Tax Lots 800, 900 & 1100).
Request
The City has received applications for a Type 1 Metro Plan diagram amendment and a concurrent Zoning
Map amendment from a property owner. In accordance with Springfield Development Code (SDC)
5.14.115(A)(1),proposals for redesignating land inside the City limits are classified as a Type 1 Metro Plan
diagram amendment requiring approval by Springfield only. SDC 5.14.125(A) states that an amendment
to the Metro Plan diagram can be initiated by a property owner at any time. Per SDC 5.1.420(B), the
property owner-initiated amendment to the Metro Plan diagram is processed as a Type 3 quasi-judicial land
use action that requires public hearings before the Springfield Planning Commission and City Council.
The proposed Metro Plan diagram amendment would change the plan designation for approximately 4.99
acres of the subject property from Campus Industrial (CI) to Commercial and concurrently change the
Gateway Refinement Plan designation for the same approximately 4.99 acres from Cl to Community
Commercial(CC). Concurrent with this Metro Plan diagram amendment, an amendment to the Springfield
Zoning Map (File 811-23-000181-TYP3)would change the zoning of the same 4.99 acres of property from
Cl to Medical Services (MS).
The proposed Metro Plan diagram, Gateway Refinement Plan diagram and Zoning Map amendments would
allow for creation of a 4.99-acre site with Community Commercial designation and Medical Services zoning
at the southern edge of a large, contiguous area of existing Campus Industrial zoning. The subject site is
vacant and is located at the southwest corner of a roughly 42.1-acre property already owned by the applicant.
Approximately the eastern 80% of the site (roughly 33.4 acres) is developed as the PeaceHealth Riverbend
Annex. Upon redesignation and rezoning of the subject property, the applicant intends to construct a
—66,000 ft' rehabilitation hospital on the 4.99-acre site. Hospitals and medical clinics are not listed as
permitted uses within the Campus Industrial district (SDC 3.2.400). However, in accordance with SDC
3.2.510, hospital services and medical clinics are listed as permitted uses in the Medical Services zoning
district.
The application was submitted on August 24, 2023 and the Springfield Planning Commission conducted a
public hearing on the proposed Metro Plan diagram, Gateway Refinement Plan diagram and Zoning Map
amendments on November 7, 2023. The Planning Commission unanimously adopted recommendations of
support for the proposal (Attachments 5 & 6).
The City Council conducted a public hearing and gave first reading to the Ordinance at the regular meeting
on January 2, 2024. The applicant made a presentation in support of the proposal and no other testimony
was received at the public hearing.
Ordinance No. 6471
Exhibit B Page 2 of 17
Background
The subject property was originally identified as part of the McKenzie-Gateway Special Light Industrial
area when the Gateway Refinement Plan was adopted in 1992. Implementation of the Special Light
Industrial area was subsequently accomplished through the creation and establishment of the Campus
Industrial zoning district. Approximately 280 acres of north Springfield extending from I-5 on the west to
the McKenzie River on the east is currently zoned and designated for Campus Industrial use. Notable early
developments within the CI district included Sony, Symantec, and Royal Caribbean. See the acknowledged
Commercial and Industrial Lands Inventory (CIBL) for a history of business development in Springfield.
However, these companies have since departed and other companies have gravitated to the area and
proceeded to occupy and repurpose many of the sites and buildings, including the applicant(PeaceHealth).
Notification and Written Comments
In accordance with the Oregon Administrative Rules (OARS)660-018-0020,prior to adopting a change to an
acknowledged comprehensive plan or land use regulation, local governments are required to notify the state
Department of Land Conservation and Development(DLCD) at least 35 days prior to the first evidentiary
hearing. A Notice of Proposed Amendment was transmitted to the DLCD on October 2, 2023, which is 36
days prior to the initial public hearing on the matter.
In accordance with SDC 5.1.425(A), Type 3 land use decisions that amend a comprehensive plan and/or
rezone specific properties require mailed notification, a posted notice, and a notice in a newspaper of general
circulation. Consistent with the requirements of SDC 5.1.425(A), notification of the November 7, 2023
Planning Commission public hearing and January 2,2024 City Council public hearing was mailed to property
owners and residents within 300 feet of the subject property on October 17, 2023 which is more than 20 days
prior to the first hearing. In accordance with SDC 5.1.440(A), the Planning Commission and City Council
public hearing notice was published in The Chronicle newspaper on October 26, 2023. Staff also posted
notices of the November 7, 2023 Planning Commission public hearing and January 2, 2024 City Council
public hearing at the following locations: three points along the public street frontages of the subject property
(northwest corner, southwest corner and southeast corner); on the Public Notices board in the lobby of
Springfield City Hall; on the Development&Public Works office digital display; and on the City's webpage.
For the January 2, 2024 City Council public hearing, staff mailed a second round of notification letters to
property owners and residents within 300 feet of the subject property on December 7, 2023. Additionally, a
second public hearing notice was published in The Chronicle newspaper on December 14, 2023. The mailed
and posted notices exceed the requirements of SDC 5.1.435.
During the public notification period for the City Council public hearing meeting a comment was received
from Nancy Fuhrman(Attachment 7). Ms. Fuhrman's concerns relate to increased traffic and noise from the
proposed medical facility. According to the applicant's submittal, the proposed rehabilitation hospital is for
patients recovering from injuries or medical procedures. The facility will not have an urgent care center or
emergency room, so,unlike the nearby Sacred Heart Hospital,there won't be ambulances inbound with lights
and sirens. This limits the noise associated with the facility to normal vehicle traffic and facility operations.
The applicant has provided a supporting Traffic Impact Analysis that confirms the proposed comprehensive
plan amendment and zone change will not have a significant affect on existing or planned transportation
facilities, including Game Farm Road. The applicant's findings satisfy the Goal 12 requirements discussed
in this staff report. Because some of the properties within the Campus Industrial district are vacant or only
partially built-out, it is inevitable that traffic will increase incrementally as new sites develop or redevelop —
even under the current zoning pattern. The proposed hospital is not designed or intended to accommodate
casual or walk-in patients which greatly limits the amount of daytime traffic associated with the facility. At
buildout, most vehicle trips associated with the facility would be reasonably expected to be employees and
Ordinance No. 6471
Exhibit B Page 3 of 17
medical staff that work at the hospital. Details on the traffic and vehicle circulation patterns associated with
the facility will be reviewed at the time of a future land use application submittal.
Criteria of Approval
SDC 5.14.135 contains the criteria of approval for the decision maker to utilize during review of Metro Plan
diagram amendments. The Criteria of approval are:
SDC 5.14.135 CRITERIA
A Metro Plan amendment may be approved only if the Springfield City Council and other applicable
governing body or bodies find that the proposal conforms to the following criteria:
A. The amendment shall be consistent with applicable Statewide Planning Goals; and
B. Plan inconsistency:
1. In those cases where the Metro Plan applies, adoption of the amendment shall not make the
Metro Plan internally inconsistent.
2. In cases where Springfield Comprehensive Plan applies, the amendment shall be consistent with
the Springfield Comprehensive Plan.
A. Consistency with Applicable State-Wide Planning Goals
Applicant's Narrative: "The Findings ofFacts below demonstrate the amendment is consistent with
applicable Statewide Planning Goals. The following applicable statewide planning goal statements
have been summarized. The Oregon Land Conservation and Development Commission Goals and
Guidelines are incorporated herein by reference, except as noted."
Finding 1: Of the 19 statewide planning goals, 13 are as "urban" goals that may be applicable to
comprehensive plan map amendments in the city; however, it is the proposal and its effect on the
purpose of these goals that will determine whether or not the proposed amendment is "consistent with"
the applicable goals. The goals that are to be evaluated are: Goal 1 —Citizen Involvement; Goal 2 —
Land Use Planning; Goal 5 —Natural Resources, Scenic and Historic Areas, and Open Spaces; Goal
6 — Air, Water and Land Resources Quality; Goal 7 — Areas Subject to Natural Hazards; Goal 8 —
Recreational Needs; Goal 9—Economic Development; Goal 10—Housing; Goal 11 —Public Facilities
and Services; Goal 12—Transportation; Goal 13 —Energy Conservation; Goal 14—Urbanization; and
Goal 15 —Willamette River Greenway. All of the statewide goals are listed below; the narrative that
accompanies each is more expositive when the discussion applies to one of the 13 goals identified
above.
Goal 1 —Citizen Involvement
Applicant's Narrative: "The City of Springfield has a citizen involvement program that is
acknowledged by the State as in compliance with Goal]. Citizens are provided the opportunity to be
involved in all phases of the planning process. The proposal does not include any changes to the
City's citizen involvement program. The requirements under Goal I are met by adherence to the
City's provisions for citizen involvement as implemented by the Springfield Development Code
(SDC)."
Ordinance No. 6471
Exhibit B Page 4 of 17
Finding 2: Goal 1 —Citizen Involvement calls for "the opportunity for citizens to be involved in all
phases of the planning process." The proposed property owner-initiated amendment to the adopted
Metro Plan diagram and concurrent amendment to the Gateway Refinement Plan diagram is subject
to the City's acknowledged plan amendment process which is a Type 3 land use action under SDC
5.1.400. The applicable Code sections include SDC 5.14.100 — Metro Plan Amendments, SDC
5.1.400 —Type 2 and 3 Procedures and SDC 5.1.425-5.1.440 — Type 3 Notice. SDC 5.1.420(B)(4)
requires a public hearing before the Springfield Planning Commission and a public hearing before the
Springfield City Council, and includes specifications for the content, timing and dispersal of mailed
notice (see description following).
Finding 3: The Planning Commission public hearing to consider the proposed amendments was held
on November 7, 2023. Mailed notification of the Planning Commission and City Council public
hearings was provided to all property owners and residents within 300 feet of the subject property on
October 17, 2023. The Planning Commission and City Council public hearings were advertised in
the legal notices section of The Chronicle newspaper on October 26, 2023. Staff also posted notices
of the scheduled public hearings at the following locations: three points along the subject property
frontages on Game Farm Road(at the southeast corner of the site near the intersection with Deadmond
Ferry Road and at southwest corner of the site near the roundabout intersection with Maple Island
Road) and at the northwest corner of the site at a second roundabout on Maple Island Road; on the
City's website; on the Public Notices board in the lobby of City Hall; and on the digital display in the
Development& Public Works office lobby.
Finding 4: The recommendations of the Planning Commission to the Springfield City Council are
included as Attachments 5 and 6 to the covering Agenda Item Summary (AIS) for consideration at
the public hearing meeting held on January 2, 2024. Because of the nearly two-month delay between
the two scheduled public hearing meetings, staff completed another round of public notifications for
the January 2, 2024 City Council public hearing. A second notification of the City Council public
hearing was mailed on December 7, 2023 to all property owners and residents within 300 feet of the
subject property. The City Council public hearing was also readvertised in the legal notices section
of The Chronicle newspaper on December 14,2023. The meeting agenda, AIS, covering staff reports
and supporting documents were posted on the City's website the Thursday prior to the January 2,2024
meeting and the public was invited to provide comments through the City's webpage, submittal to
staff or direct submittal to Council. Additional information was also provided to the public for how
to attend the public hearing meeting via online meeting platform or by phone. As a result of the
second round of public hearing notification, a written comment was received from Nancy Fuhrman
and is included as Attachment 7. The notice for this proposed Metro Plan diagram amendment
complies with SDC 5.1.425-5.1.440 and is consistent with Goal 1 requirements.
Goal 2—Land Use Planning
Applicant's Narrative: "Goal 2 requires local plans and regulatory measures to be consistent with
statewide goals and land use decisions to be supported by an adequate factual basis. Goal 2 also
requires that comprehensive plan amendments be adopted after a public hearing by the governing
body that provides citizens an opportunity to comment on the proposed amendment. Goal 2
establishes a land use planning process and policy framework as a basis for all land use decisions
and requires the development ofan adequate factual base to support these decisions. A minor change
is one that does not have significant effect beyond its immediate area and is based on special studies
or information. The justification for the particular change must be established. The City of
Springfield has adopted a comprehensive land use Plan amendment process, including speck
Ordinance No. 6471
Exhibit B Page 5 of 17
standards that must be addressed to justify the change. In addition, Oregon Administrative Rules
have been promulgated for the Exception Process. Substantial compliance with SDC 5.14.100 and
the OAR provisions is addressed above and below in this written statement in compliance with the
applicable provisions of Goal 2. The SDC implements Goal 2 by providing state-acknowledged
procedures and criteria governing land use decisions. This Plan amendment and related zone change
application will be considered by the Planning Commission and City Council following two public
hearings. This application is being processed in compliance with the requirements of SDC and thus
complies with Goal 2."
Finding 5: Goal 2—Land Use Planning outlines the basic procedures for Oregon's statewide planning
program. In accordance with Goal 2, land use decisions are to be made in accordance with a
comprehensive plan, and jurisdictions are to adopt suitable implementation ordinances that put the
plan's policies into force and effect. Consistent with the City's coordination responsibilities and
obligations to provide affected local agencies with an opportunity to comment, the City sent a copy
of the application submittals to the following agencies: Willamalane Park & Recreation District;
Springfield Utility Board (water, ground water protection, electricity and energy conservation); Lane
911;United States Postal Service;Northwest Natural Gas;Emerald People's Utility District;Rainbow
Water District; Eugene Water and Electric Board — Water and Electric Departments; Springfield
School District 419 Maintenance, Safe Routes to School and Financial Services; Lane County
Transportation, County Sanitarian; Lane Regional Air Pollution Authority; Comcast Cable;
CenturyLink; Lane Transit District; and ODOT Planning and Development, State Highway Division.
Additionally, notice was provided electronically to DLCD on October 2, 2023.
Finding 6: The Metro Plan and Springfield 2030 Comprehensive Plan together make up the
acknowledged comprehensive plan for guiding land use planning in Springfield. The City has adopted
other neighborhood- or area-specific plans (such as Refinement Plans) that provide more detailed
direction for land use planning under the umbrella of the Metro Plan and Springfield 2030
Comprehensive Plan. The subject site is within the boundary of the adopted Gateway Refinement
Plan. Therefore, the proposed amendment to the Metro Plan diagram will concurrently amend the
Gateway Refinement Plan diagram.
Finding 7: The City has adopted the Urbanization, Residential Land and Housing and Economic
elements of the Springfield 2030 Comprehensive Plan. These adopted elements either replace and
supersede(i.e. Urbanization and Economic elements) or update and supplement(i.e.Residential Land
and Housing element) the corresponding Metro Plan elements. Springfield's Comprehensive Plan
elements have been acknowledged by DLCD. Ensuring that the proposed Metro Plan diagram
amendment does not create an internal inconsistency in the Metro Plan is addressed in Criterion B.1
below.
Finding 8: The public hearing process used for amendment of the Metro Plan is specified in Chapter
IV Metro Plan Review, Amendments, and Refinements. The findings under Criterion B (below)
demonstrate that the proposed amendment will not make the adopted Metro Plan internally
inconsistent.
Finding 9: The City's Development Code is a key mechanism used to implement the goals and
policies of the City's adopted comprehensive plans including the Metro Plan, elements of the
Springfield 2030 Comprehensive Plan and neighborhood-specific Refinement Plans. The proposal is
classified as a Type 1 amendment to the adopted Metro Plan diagram that is approved by Springfield
only in accordance with SDC 5.14.115(A). Type 1 Metro Plan amendments within City limits do not
Ordinance No. 6471
Exhibit B Page 6 of 17
require concurrent approval or adoption by Lane County. The proposed Metro Plan diagram
amendment is site-specific and is therefore processed as a Type 3 land use action as described in SDC
5.1.420. The process observed for the proposed Metro Plan diagram amendment is consistent with
the policies pertaining to Review, Amendments and Refinements. Additionally, the proposed Metro
Plan diagram amendment and concurrent Gateway Refinement Plan diagram amendment has been
initiated in accordance with the provisions of the City's acknowledged comprehensive plan and
Development Code (SDC 5.14.125(A)). The proposed Metro Plan diagram and Gateway Refinement
Plan diagram amendments are consistent with City ordinances,policies,plans, and studies adopted to
comply with Goal 2 requirements. Notice and coordination requirements "with those local
governments, state and federal agencies and special districts which have programs, land ownerships,
or responsibilities within the area"that includes this proposal have been provided consistent with Goal
2.
Goal 5 —Natural Resources, Scenic and Historic Areas, and Open Spaces
Applicant's Narrative: "Goal S requires the conservation of open space and the protection of
numerous natural, cultural, historic and scenic resources. The goal applies to the following
resources: riparian corridors, water and riparian areas and fish habitat, wetlands, wildlife habitat,
mineral and aggregate resources, energy sources, natural areas, scenic views and sites, open space,
groundwater resources, wilderness areas, historic resources, cultural areas, Oregon recreational
trails,federal wild and scenic waterways and state scenic waterways. OAR 660-023-0010 and 0020
includes definitions, standards and specific rules applicable to each Goal S resource inventoried for
conservation under the goal. The Goal S resources listed above have been appropriately considered
by the City of Springfield in the Plan. The property does not contain any inventoried Statewide Goal
S resources. There are no known significant natural assets or historic resources on the property. The
amendment does not propose a change to the City's list of Goal S resources or propose a change to
any regulatory measures related to Goal S. The proposed request will not allow new uses that could
be in conflict with a significant Goal S resource site. Goal S is not applicable."
Finding 10: Goal 5 —Open Spaces, Scenic and Historic Areas, and Natural Resources applies to more
than a dozen natural and cultural resources such as wildlife habitats and wetlands, and establishes a
process for each resource to be inventoried and evaluated. The subject site has not been identified as
a historic resource in the City's Register of Historic Sites,nor as an open space resource in the adopted
2012 Willamalane Park & Recreation District Comprehensive Plan. Project 03 in the 2023
Willamalane Comprehensive Plan (awaiting adoption by the City of Springfield) lists "North
Springfield Trail Connectivity" as an ongoing project in the general vicinity of the Campus Industrial
district but there are no planned connections through the subject site. Finally, there are no features
within the subject property that are identified in the City's acknowledged Local Wetlands Inventory
or Natural Resources Inventory. As noted in the applicant's narrative, there are no identified or
inventoried Goal 5 resources located within the subject site. Therefore, this action does not alter the
City's acknowledged compliance with Goal 5.
Goal 6—Air, Water and Land Resources Quality
Applicant's Narrative: "Goal 6 is generally implemented during the comprehensive planning process
and local regulations. The City ofSpringfield's Environmental Services Division (ESD) coordinates
the City's compliance with applicable state andfederal environmental quality statues. ESD manages
multiple programs to maintain compliance with Goal 6 including 1) Water Resources Programs, such
as implementing the City's National Pollutant Discharge Elimination System NPDES) stormwater
Ordinance No. 6471
Exhibit B Page 7 of 17
discharge permit, 2) Industrial Pretreatment Program such as administering the Pollution
Management Practice programs, and 3) Wastewater & Stormwater Programs. The proposed Plan
amendment does not alter the City's acknowledged compliance with Goal 6. As Goal 6 pertains to
site-specific development, it requires that adequate protective measures are taken to ensure the
maintenance ofan, water and land quality. This Plan amendment will encourage development ofland
inside the city for medical services. All new development must comply with applicable local, state
and federal air and water quality standards. The general vicinity of the Subject Property is served by
adequate on-site water and sanitation facilities. The proposed use of the Subject Property is not
expected to produce or discharge any product or by-product that would degrade the quality of the any
water and land resources."
Finding 11: Goal 6 —Air, Water and Land Resources Quality applies to local comprehensive plans
and the implementation of measures consistent with state and Federal regulations on matters such as
clean air, clean water, and preventing groundwater pollution. The proposed Metro Plan diagram
amendment does not affect City ordinances,policies,plans, and studies adopted to comply with Goal
6 requirements. Future development of the site will be subject to the city's adopted and acknowledged
land use regulations at the time of development.
Finding 12: There are no mapped Water Quality Limited Watercourses within or adjacent to the
subject property. Therefore,this action does not alter the City's acknowledged compliance with Goal
6.
Goal 7—Areas Subject to Natural Hazards
Applicant's Narrative: "The Metro Plan and the SDC are acknowledged to be in compliance with all
applicable statewide land use goals, including Goal 7. The City of Springfield has existing programs,
policies, zoning overlays, and development standards to regulate development in areas subject to
natural disasters and hazards. The Subject Property included is not in the City's Floodplain Overlay
District or the Hillside Development Overlay District. The proposed Plan amendment does not affect
any City regulations or alter mitigation requirements for any properties in areas subject to natural
disasters and hazards. Goal 7 is not applicable. There are no known areas subject to natural
disasters or hazards on the Subject Property. The Subject Property is not located within the 100 -
year flood hazard area as determined by Flood Insurance Rate Map (FIRM) Panel 41039C1133F
effective June 2, 1999. FEMA has updated flood maps to better show the risk offlooding in Central
Lane County. The revised pending maps continue to show the Subject Property in Zone X. The
western and southern edge of the Subject Property are in an area with 0.2%annual chance offlood
and the remaining portion is considered an area of minimal flood hazard."
Finding 13: Goal 7 — Areas Subject to Natural Hazards applies to development in areas such as
floodplains and potential landslide areas. Local jurisdictions are required to apply "appropriate
safeguards" when planning for development in hazard areas. The City has inventoried areas subject
to natural hazards such as the McKenzie and Willamette River floodplains and potential landslide
areas on steeply sloping hillsides. The subject site is on vacant, level ground that is not within the
mapped 100-year flood hazard area of the McKenzie River. Future development of the site is subject
to the provisions of the City's Site Plan Review process as described in SDC 5.17.100.
Finding 14: The proposed Metro Plan diagram amendment and concurrent Gateway Refinement Plan
diagram amendment has no effect on City ordinances, policies, plans, and studies adopted to comply
with Goal 7 requirements and siting standards for development within hillside areas or the mapped
Ordinance No. 6471
Exhibit B Page 8 of 17
flood hazard area of the McKenzie and Willamette Rivers. Therefore,this action has no effect on the
City's acknowledged compliance with Goal 7.
Goal 8 —Recreational Needs
Applicant's Narrative: "Goal 8 addresses the recreational needs of Oregon residents and visitors.
Provisions of this goal are appropriately implemented by a legislative process as part of periodic
review of the Plan. The City of Springfield evaluated projected population growth, changes in
community demographics, and the recreational needs of citizens and visitors. In compliance with
Goal 8, the Metro Plan Diagram designates areas needed for Parks and Open Space. The subject
property does not contain any land identified as needed to meet recreational needs or to satisfy the
demand for recreational facilities. The proposed Plan amendment and zone change will not affect
the City' s supply of land available for recreation areas or recreational facilities. The proposed
change from Campus Industrial to Commercial has no direct impact on recreational needs. Goal 8
is not applicable."
Finding 15: Goal 8 —Recreational Needs requires communities to evaluate their recreation areas and
facilities and to develop plans to address current and projected demand. The provision of recreation
services within Springfield is the responsibility of Willamalane Park & Recreation District.
Willamalane has just adopted a new Comprehensive Plan for the provision of park, open space and
recreation services for Springfield(2023 Willamalane Comprehensive Plan). The 2023 Willamalane
Comprehensive Plan has not yet been co-adopted by the City of Springfield, but it provides current
and updated information about the City's recreational needs under Goal 8.
Finding 16: There are no park or recreational facility projects in the adopted 2012 Willamalane
Comprehensive Plan that affect the subject property. The 2023 Willamalane Comprehensive Plan
identifies a potential project in the general vicinity of the subject site. Project 03 —North Springfield
Trail Connectivity (also depicted as Project L27 on Figure 35,Page 110)shows a linear multi-purpose
path that is not a Willamalane facility, but that could be extended to connect with local trail systems
at Coburg Loop and Armitage Park from north Springfield. The multi-use path shown on Figure 35
of the Willamalane Comprehensive Plan and described in Appendix 11, Page 27, follows the
alignment of International Way which is just north of the subject site. There is an existing multi-use
pathway along the north side of International Way. However, there are no dedicated pathway
connections shown to or through the subject property. Future development of the subject site would
require the provision of setback sidewalks on the east side of Maple Island Road, which would
improve pedestrian accessibility along this segment of road and would eventually connect with the
multi-use pathway to the north along International Way. Based on the foregoing,the proposed Metro
Plan diagram amendment would not affect Willamalane's adopted Comprehensive Plan or other
ordinances, policies,plans, and studies adopted to comply with Goal 8 requirements. Therefore, this
action is consistent with the City's acknowledged compliance with Goal 8.
Goal 9—Economic Development
Applicant's Narrative: "The purpose of Goal 9 is to diverse and improve the economy of the State
and is primarily applicable to commercial and industrial development. In 2007 the Oregon
legislature adopted House Bill 3337 establishing land use planning requirements for the Eugene -
Springfield Metro area. ORS 197.304 established a mandate that Springfield and Eugene separately
determine the projected 20 year need for housing and establish separate urban growth boundaries to
meet housing needs. Although ORS 197.304 only required separate UGBs for housing, it was implicit
Ordinance No. 6471
Exhibit B Page 9 of 17
that the two cities independently plan for other land use needs including employment growth, as
defined by Goal 9. Pursuant to Goal 9, in 2010, Lane County and the cities and Springfield and
Eugene approved the Regional Prosperity Economic Development Plan providing a framework to
better align regional economic growth the area's assets and values. Given the complexity involved
with addressing ORS 197.304, the City ofSpringfield chose to phase adoption ofvarious amendments
to the Plan. To address OAR 660-009-001 S(1) and(4), the City of Springfield prepared an Economic
Opportunities Analysis (EOA) to review "the types and amounts of industrial and other employment
uses likely to occur in the planning area". The EOA identified "Medical Services" as a Target
Industry and typically located in Plan Designations Commercial, Commercial Mixed Use, High
Density Residential Mixed Use, Light Medium Industrial Mixed use or Medium Density Mixed use, or
Mixed Use. The City of Springfield inventory of Commercial Industrial Buildable Land (CIBL)
identified the Subject Property as vacant Campus Industrial Land. The CIBL also concluded there
were not enough large vacant sites within the City ofSpringfield UGB to accommodate the projected
economic growth. Relevant City of Springfield economic development strategies include:
• Provide sites with a variety of site characteristics to meet both commercial and industrial
economic opportunities, including sites that are available for relatively fast development. This
includes] large sites for major employers.
• Support and assist existing businesses within Springfield by assessing what kind of assistance
businesses need and developing programs to meet that need.
• Attract and develop new businesses, especially those related to regional business clusters. The
City would like to build on the developing health care cluster, promote development of high-
tech businesses, and attract sustainable businesses.
• Maintain flexibility in planning through providing efficient planning services and developing
planning policies to respond to the changing needs of businesses.
On December S, 2016, the City of Springfield adopted Ordinance No. 6361 amending the Springfield
urban growth boundary and adopting the Springfield 2030 Comprehensive Plan (2030 Plan)
Economic and Urbanization Policy Elements. The 2030 Economic Element provides policy direction
to address the community's commercial, industrial, and other employment development needs and
supplants the Economic Element in the Metro Plan. The new In-Patient Rehabilitation Facility
requires a site approximately 4.99 acres in size. Based on data provided by LCOG on June 1, 2023,
inside the City ofSpringfield there are no vacant lots between 4.0 to 8.0 acres in size currently zoned
Community Commercial or Medical Services. There are two vacant lots zoned Mixed Use
Commercial that fall within this size range located on the PeaceHealth RiverBend campus across
from the hospital. Although the MUC zone would allow an In-Patient Rehabilitation Facility, it is
vital that the two properties remain available for uses that require proximity to the hospital. The Plan
amendment will allow the Subject Property to be designated Commercial and full a key economic
goal to support the health care cluster. The new In-Patient Rehabilitation Facility will provide a
medical service offering patients a transition between services provided in a hospital and those
typically available in an assisted care facility. The Subject Property is located close to other major
medical facilities including the PeaceHealth RiverBend and McKenzie Willamette hospitals. The
Subject Property is within a block of frequent transit service and bike routes. The Plan amendment
will not have an adverse impact availability ofsuitable sites for a variety of economic activities. The
Plan amendment will provide the following economic benefits:
1. The change in plan designation will stimulate development of an underutilized portion of the
RiverBend Campus and result in a more efficient land use Pattern.
Ordinance No. 6471
Exhibit B Page 10 of 17
2. Strengthen the medical services sector in the City of Springfield helping to address a "target
industry".
3. Development of the site for the planned In-Patient Rehabilitation Facility is expected to add
approximately 150 jobs and result in direct and indirect benefits to the local economy.
Forfurther information regarding the Plan amendment's compliance with the City ofSpringfield 2030
Economic Element,please refer to the analysis below regarding SDC 5.14.135(B). "
Finding 17: Under Goal 9—Economic Development, the proposed plan amendment must ensure that
there is enough serviceable land within the Springfield UGB to meet the industrial and commercial
site needs identified in the Economic Element and the City's acknowledged Commercial and
Industrial Buildable Lands Inventory and Economic Opportunities Analysis (CIBL-EOA). The CIBL
identifies the City's needed sites for employment uses based on use categories and site size ranges,
rather than by cumulative area needed within the UGB.
Finding 18: Table 5-1 of the CIBL concluded that there was a surplus of 235 commercial sites less
than one (1) acre, and a deficit of two (2) commercial sites 2-5 acres, but a surplus of forty-four(44)
industrial sites of that size. The plan designation proposed for this property would create a commercial
site of roughly 5 acres from a currently vacant 6.8-acre industrial site and a small portion
(approximately 0.6 acres) of a larger, existing industrial site. The approximately 0.6-acre portion
taken from the southwest corner of the —35-acre PeaceHealth Riverbend Annex property has no
appreciable impact on the City's CIBL or the property's size classification because it was already
inventoried as a 20+ acre "developed" site.
Finding 19: A recent Metro Plan diagram amendment and zone change adopted in Ordinance 6422
removed one commercial site in the 2-5 acre category from the City's Commercial and Industrial
Buildable Lands Inventory (CIBL) and added a commercial site in the less than 1 acre category.
Subsequently, adoption of Ordinance 6429 added back about 1.14 acres of commercial to the less-
than-one-acre site,which, in aggregate,resulted in a new commercial site in the 2-5 acre category and
removed a site from the less than 1 acre category. Additionally, the recently approved Latter Day
Saints temple on International Way — currently under construction —removed a 5-20 acre industrial
site from the inventory. By creating a new 4.99-acre commercial site from a combination of vacant
and developed industrial properties, the proposed redesignation would: 1) remove another 5-20 acre
industrial site from the inventory;2) create another commercial site of 2-5 acres (which eliminates the
deficit); and, 3) create a new vacant industrial site in the 2-5 acre category.
Conclusion: The proposal does not have an adverse impact on the City's CIBL and would eliminate
a deficit of commercial sites 2-5 acres in size. Based on the foregoing,this proposal is consistent with
Goal 9.
Goal 10 - Housing
Applicant's Narrative: "Goal 10 is intended to provide for the housing needs of the citizens of the
State. This Goal is primarily implemented through the provisions of the Plan. The proposed Plan
Amendment does not impact the buildable land supply for housing. The new expanded IPF will
initially provide 50 beds for those needing 24-hour medical care exceeding what is typically offered
in an assisted care facility or nursing home. The size ofthe site will allow the facility to add 10 more
beds in the future. The facility will not provide the complete services of a hospital so being inclose
proximity to the two hospitals in Springfield will be beneficial."
Ordinance No. 6471
Exhibit B Page 11 of 17
Finding 20: Goal 10—Housing applies to the planning for—and provision of—needed housing types,
including multi-family and manufactured housing. Goal 10 requires the City to evaluate and maintain
a sufficient buildable land base for projected housing needs over the forecast period. The City
monitors and updates the calculated acreage of residential buildable lands when redesignation and
rezoning actions affect the net acreage attributed to Low,Medium,and High-Density Residential uses.
Finding 21: The proposed redesignation does not affect the City's inventory of residential land.
Therefore, Goal 10 is not applicable.
Goal 11 —Public Facilities and Services
Applicant's Narrative: "The Subject Property is located in the City of Springfield and a full range of
urban services are available to serve the site and the anticipated development. The Plan amendment
will not affect the City or other service providers'ability to provide public services."
Finding 22: Goal 11 —Public Facilities and Services addresses the efficient planning and provision
of public services such as sewer, water, law enforcement, and fire protection. In accordance with
OAR 660-011-0005(5), public facilities include water, sewer and transportation facilities, but do not
include buildings, structures or equipment incidental to the operation of those facilities. The proposed
redesignation and rezoning cannot result in permitted uses that will have an adverse effect on the
demand for public facilities and services provided to the subject property and adjacent properties.
This area of Springfield is already planned for a variety of Campus Industrial uses and the public
facilities serving this area have been designed accordingly.
Finding 23: The existing public facilities available to serve the subject site are detailed in the
accompanying Zone Change staff report (File 811-23-000181-TYP3) and are incorporated herein by
reference. Existing and planned public facilities and services (including infrastructure to be
constructed in conjunction with the proposed rehabilitation hospital) will be evaluated with the Site
Plan Review process and are deemed to be adequate to support buildout of the site under the current
Campus Industrial zoning and designation or the proposed Commercial designation. Under either
land use designation, a proposed development would be responsible for managing drainage on the
site,improving the public street frontages(particularly along Maple Island Road),extending the throat
of the midpoint roundabout intersection on Maple Island Road to create a driveway entrance, and
calculating sewage flow volumes relative to the capacity of the existing sanitary sewer pump station
located at the southeast corner of the property. Under the current Campus Industrial designation, the
subjectproperty could be developed with a large corporate headquarters building,regional distribution
center or manufacturing facility that would require similar infrastructure and have similar impacts to
those of a rehabilitation hospital. For the aforementioned reasons, it is found that the proposed
redesignation of 4.99 acres of Campus Industrial to Commercial will not have a significant impact on
the overall land use characteristics and configuration for the Gateway Refinement Plan area. The
proposed redesignation will result in maintaining stable demand on public facilities and services.
Therefore, the changes to the type and distribution of land uses resulting from the proposed Metro
Plan amendment will not have an adverse impact to the City's sanitary or storm sewer systems, or
other public infrastructure. The proposal is consistent with Goal 11 requirements.
Goal 12—Transportation
Applicant's Narrative: "The intent of Goal 12 is implemented through the provisions of the State
Transportation Planning Rule (TPR) (OAR 660, Division 12) which was adopted by LCDC in 1991.
Ordinance No. 6471
Exhibit B Page 12 of 17
OAR 660-012-0060(1) requires that amendments to functional plans, acknowledged comprehensive
plans, and land use regulations which significantly affect a transportation facility shall assure that
allowed land uses are consistent with the identified function, capacity, and level of service of the
facility. To determine whether the proposed amendments will significantly affect a transportation
facility, the TPR lists specific criteria against which the proposed amendments are to be evaluated.
The TPR provides that a plan or land use regulation amendment significantly affects a transportation
facility if it:
a) Changes the functional classification ofan existing or planned transportation facility;
b) Changes standards implementing a functional classification system;
c) Allows types or levels of land uses which would result in levels of travel or access which are
inconsistent with the functional classification ofa transportation facility; or,
d) Would reduce the level ofservice of the facility below the minimum acceptable level identified
in the TSP (Transportation System Plan).
For a complete analysis ofhow the application meets Goal 12 and the Transportation Planning Rule,
please see Exhibit II- Traffic Impact Analysis and Transportation Planning Rule Analysis prepared
by Sandow Engineering."
Finding 24: The Transportation Planning Rule(TPR),Oregon Administrative Rule OAR 660-12-0060,
requires local governments to put in place mitigation measures as provided in the TPR whenever an
amendment to a functional plan,an acknowledged comprehensive plan,or land use regulation(including
a zone change)would "significantly affect" an existing or planned transportation facility.
Finding 25: Under the TPR,a plan amendment or zone change may result in a"significant affect"under
OAR 660-012-0060(2)(a) and (b) by changing the functional classification of an existing or planned
transportation facility or by changing the standards implementing a functional classification system.
The subject application proposed to amend the Metro Plan diagram designation from Medium Density
Residential (MDR)to Commercial designation. The proposed amendments do not alter the functional
classification of any facility or change any standards for implementing the functional classification
system and therefore do not result in a"significant affect"under OAR 660-012-0060(2)(a) or(b).
Finding 26: Under the TPR,a plan amendment or zone change may also result in a"significant affect"
if it would result in any of the effects listed under OAR 660-012-0060(2)(c) "based on projected
conditions measured at the end of the planning period identified in the adopted TSP."
Finding 27: Under the TPR, a"significant affect" occurs if the proposed amendment(s)would result
in types or levels of travel or access that are inconsistent with the identified function classification of
the existing or planned transportation facilities, that degrade the performance of an existing or planned
transportation facility such that it would not meet performance standards identified in the TSP, or that
degrade the performance of an existing or planned transportation facility that is otherwise not projected
to meet the performance standards identified in the TSP.
Finding 28: As required by SDC 5.22.110,the applicant has submitted a Traffic Impact Analysis (TIA)
addressing trip generation associated with the proposed zone change to show compliance with the TPR
at OAR 660-012-0060. The applicant's TIA can be found in Exhibit H to the application materials
submitted for the Metro Plan diagram amendment and zone change.
Finding 29: The City's Transportation Planning Engineer has reviewed the TIA and concurs with the
applicant's trip generation methodology and findings. The applicant's TIA provides Trip Generation
Ordinance No. 6471
Exhibit B Page 13 of 17
scenarios for the existing and proposed plan designations and zoning. The trips generated by the existing
zoning were compared to the proposed zoning under"reasonable worst-case scenario"or the reasonable
most-traffic-generative use conditions.
Finding 30: The applicant's proposed zoning scenario is the reasonable most-traffic-generative use
for the subject property. Specifically, the applicant assumes that the subject property would develop
as an approximately 72,000 square foot medical clinic,which represents the reasonable most-traffic-
generative use that could be constructed on this site.
Finding 31: Under the applicant's reasonable most traffic-generative scenario,the proposed Metro Plan
diagram amendment and zone change would result in an increase of 132 peak hour trips over the
reasonable most traffic-generative scenario under the current Campus Industrial zoning and designation.
When calculated based on 2023 traffic volumes and also projected to the 2035 planning horizon, the
applicant's TIA reaches the following conclusions: 1)the proposed zone change will not cause traffic
levels, patterns, or access that are inconsistent with the functional classification of an existing or
planned transportation facility; 2) the proposed zone change does not degrade the performance of an
existing or planned transportation facility such that it would not meet the performance standards; and,
3) all existing and planned transportation facilities will meet the applicable standards. The TIA further
concludes that no off-site mitigation is required to accommodate the proposed development. The TIA's
analysis and findings in support of these conclusions are incorporated herein by reference. Therefore,
the increase in trips proposed with this plan amendment and zone change will not result in any significant
affect listed under OAR 660-012-0060(2)(c).
Conclusion: Based on the above findings, the subject proposal to amend the Metro Plan diagram
designation is consistent with OAR 660-012-0060 and SDC 5.22.115(C)(4)(b), and no additional
mitigation is required under the TPR. The proposal is consistent with Goal 12 requirements.
Goal 13 —Energy Conservation
Applicant's Narrative: "The Subject Property does not contain any non-renewable energy resources
on the property. The proposed Plan amendment will not amend or affect any land use regulations
enacted to implement Goal 13. All new development will be required to comply with local, state and
federal codes related to energy conservation. Goal 13 is not applicable."
Finding 32: The Oregon Land Use Board of Appeals (LUBA) has established that Goal 13 does not
require a specific energy analysis or other Goal 13 analysis for changes to a comprehensive plan
diagram or zoning. See Barnard Perkins Corp. v. City ofRivergrove, 34 Or LUBA 660 (1998).
Finding 33: The proposed comprehensive plan diagram amendment and rezoning does not affect the
City's ordinances, policies, plans, or studies adopted to comply with Goal 13 requirements.
Converting 4.99 acres of the property from Campus Industrial to Commercial should not have an
appreciable impact to energy consumption. The developer will have an opportunity to incorporate
suitable energy conservation measures when detailed construction plans are prepared for the site,
irrespective of the zoning. The City's building codes comply with all Oregon State Building Codes
Agency standards for energy efficiency in commercial building design. The City's conservation
measures applicable to storm water management, temporary storage, filtration and discharge would
apply to any Campus Industrial, commercial or medical services uses developed on this site;therefore,
this action has no effect on the City's acknowledged compliance with Goal 13.
Ordinance No. 6471
Exhibit B Page 14 of 17
Goal 14 -Urbanization
Applicant's Narrative: "The Subject Property is in the Springfield Urban Growth Boundary and
inside the city limits. This Plan amendment does notpropose to expand the Urban Growth Boundary
thus does not require a review of the transition of rural to urban land uses. Therefore, the provisions
of Goal 14 and OAR Chapter 660, Division 24 ((Jrban Growth Boundaries) are not applicable."
Finding 34: Goal 14 —Urbanization requires cities to estimate future growth rates and patterns, and
to incorporate, plan, and zone enough land to meet the projected demands. The City already planned
for employment land use on the subject property when completing its Commercial and Industrial
Buildable Land inventory. As previously determined and stated above, a surplus of industrial land in
the 2-5 acre range exists in the City's employment land inventory already. The City is responding to
a request from a property owner to redesignate and rezone 4.99 acres of the subject property from
Campus Industrial to Medical Services use. Very similar and complementary employment land uses
already exist in the immediate vicinity of the subject site. The subject property is within the existing
UGB and is already annexed to the City. The proposed redesignation and zone change does not affect
the City's adopted ordinances, policies, plans, or studies adopted to satisfy the compliance
requirements of Goal 14.
Goal 15 —Willamette River Greenway
Applicant's Narrative: "Goals IS through 18 are inapplicable to this application as they are
geographically oriented and only apply to the Willamette River Greenway and coastal resources."
Finding 35: Goal 15 —Willamette River Greenway establishes procedures for administering the 300
miles of greenway that borders the Willamette River, including portions that are inside the City limits
and UGB of Springfield. The subject site is not within the adopted Willamette River Greenway
Boundary area so this goal is not applicable; therefore, this action has no effect on the City's
acknowledged compliance with Goal 15.
B. Plan Inconsistency
1. In those cases where the Metro Plan applies, adoption of the amendment shall not make the
Metro Plan internally inconsistent.
Applicant's Narrative: "The Plan amendment is a request to change the Plan designation for a
specific site and does not include any proposed changes to the Plan text. Adoption of the Plan
amendment will not cause any internal inconsistencies in the Metro Plan."
Finding 36: The adopted Metro Plan and Springfield 2030 Comprehensive Plan are the principal
policy documents that create the broad framework for land use planning within the City of Springfield.
As explained herein, both are applicable to this application. The City's adopted Zoning Map
implements the zoning designations of the Metro Plan diagram and localized Refinement Plans,which
are adopted amendments to the Metro Plan. The subject property is within the Gateway Refinement
Plan area, so the proposed amendment to the Metro Plan diagram will concurrently amend the
Refinement Plan diagram. The policies and implementation actions of the Springfield 2030
Refinement Plan Economic Element have updated and superseded the goals, objectives and policies
of the Metro Plan's Commercial Element pertaining to employment lands. Therefore,the Metro Plan
Commercial Element does not apply to this proposal.
Ordinance No. 6471
Exhibit B Page 15 of 17
Finding 37: In accordance with Chapter IV —Metro Plan Review, Amendments, and Refinements,
the City's Comprehensive Plan is not designed or intended to remain static and unyielding in its
assignment of land use designations. To that end, provisions of Chapter IV, Policy 7.a, allow for
property owners to initiate an amendment to the Metro Plan diagram to reflect a change in
circumstances or need.
Finding 38: There are no conflicts created by this proposed diagram amendment based on needed
employment land inventories. The development of this land with a commercial(i.e. medical services)
use would not conflict with other land use elements in the Metro Plan including residential, industrial,
park and open space, or government and education. Therefore, adoption of the amendment to the
Metro Plan diagram will not result in an internal inconsistency.
Finding 39: The City has adopted the Gateway Refinement Plan for the northwest quadrant of
Springfield, including the subject site. The proposed redesignation would amend the Gateway
Refinement Plan diagram to change the site's land use designation from Campus Industrial to
Community Commercial. The Community Commercial designation in the adopted Refinement Plan
is necessary to implement the requested Medical Services zoning. There are no specific policies or
implementation actions in the Commercial or Industrial elements of the adopted Refinement Plan that
preclude the redesignation of one employment land use to another employment land use—in this case,
from Industrial to Commercial.
Finding 40: Implementation Action 7.0 of the Industrial element requires the City to "ensure that
McKenzie-Gateway SLI Site development achieves a high level of aesthetics and amenity, consistent
with the intent of the Metro Plan SLI designation and with the "campus industrial" concept." The
proposed redesignation does not preclude the site from adhering to the requirements of
Implementation Action 7.0, and this consistency with Refinement Plan provisions would be
determined at the time of Site Plan Review.
Finding 41: Implementation Action 8.0 of the Industrial element requires the City to "provide for an
efficient and flexible transportation system for the McKenzie-Gateway SLI Site." The subject site
already has a mature and efficient transportation system developed along the site frontages and in the
immediate vicinity, including provisions for passenger vehicle, commercial vehicle, pedestrian,
bicycle, and bus rapid transit modes of travel. As evidenced by the TIA submitted in support of the
proposed redesignation (see Goal 12 analysis in Criterion A, above), the requested action does not
adversely impact the local transportation system.
Conclusion: Because the City has adopted the Springfield 2030 Refinement Plan Economic Element,
the Commercial Element of the Metro Plan no longer applies to this proposal. Additionally,based on
the foregoing findings the requested redesignation does not cause the adopted Gateway Refinement
Plan to be internally inconsistent. For the above reasons, Criterion B.1 is met.
2. In cases where Springfield Comprehensive Plan applies, the amendment shall be consistent
with the Springfield Comprehensive Plan.
Applicant's Narrative: "The Plan amendment is consistent with the Springfield Comprehensive Plan
including the policies listed below in bold italics:
Policy E.3 Work with property owners and their representatives to ensure that prime development
and redevelopment sites throughout Springfield and its Urban Growth Boundary that are
Ordinance No. 6471
Exhibit B Page 16 of 17
designated for employment use are preserved for future employment needs and are not subdivided
or used for non-employment uses.
The Plan amendment will facilitate development of an underutilized land and allow an inpatient
rehabilitation facility to be developed on the site bringing about 150 new jobs to the City ofSpringfield
at about 30 employees per acre.
Policy E.6 Facilitate short term and long term redevelopment activity and increased efficiency of
land use through the urban renewal program, updates to refinement plans and the development
review process.
The Plan amendment will facilitate efficient land use by increasing the overall intensity and density
of the uses on the PeaceHealth RiverBend Annex campus.
Policy E.7 Where possible, concentrate development on sites with existing infrastructure or on sites
where infrastructure can be provided relatively easily and at a comparatively low cost.
The Plan amendment concentrates development within the city limits on a site with available
infrastructure for public facilities and services.
Policy E.16 Consider the economic opportunities provided by transportation corridors and seek to
maximize economic uses in corridors that provide the most optimal locations and best exposure for
existing and future commercial and industrial uses.
The Plan amendment will stimulate development on a multi-modal transportation corridor. The new
employees will increase ridership on the EmX and use of the bike routes.
Policy E.28 Increase the potential for employment in the regional industry clusters, including.
Health Care, Communication Equipment, Information Technology (Software), Metals
(Wholesalers),Local Food and Beverage Production and Distribution,Specialty Agriculture, Wood
& Forest Products, and Transportation Equipment.
The Plan amendment will facilitate development of a new in patient rehabilitation facility increasing
employment in the Health Care industry. This Plan amendment will increase the Health Care cluster
in the Gateway [area] of the City.
Policy E.40 Provide the services, infrastructure, and land needed to attract the identified industry
clusters, especially where they can increase economic connectivity among businesses.
The Plan amendment will increase the amount of land available for community commercial uses
including the proposed inpatient rehabilitation facility."
Finding 42: The applicant is proposing to redesignate a vacant portion of its own property holdings
to facilitate construction of a medical facility in an area of expanding medical and health-related
industries in north Springfield. The health care use proposed for this location (i.e. specialty hospital)
is specifically identified in the CIBL as being a top-tier sector for commercial land uses within the
City's employment land base.
Finding 43: The proposed Metro Plan diagram amendment will concurrently amend the Gateway
Refinement Plan diagram. The land use designation for the subject site would be changed from
Campus Industrial to Community Commercial. In accordance with SDC 3.2.505(B), the requested
Medical Services zoning requires a commercial land use designation of Community Commercial,
Major Retail Commercial or Mixed Use Commercial for its implementation.
Ordinance No. 6471
Exhibit B Page 17 of 17
Finding 44: Through its previous Commercial and Industrial Buildable Land inventory, the City has
determined that a large surplus of 2-5 acre industrial sites exist within the Springfield land base. The
proposed redesignation and rezoning of this property from Campus Industrial to Medical Services
would slightly reduce this acknowledged surplus while providing a development-ready site for a key
target industry employment use. The proposed redesignation also eliminates the deficit of commercial
sites in the 2-5 acre category.
Finding 45: The proposed redesignation is consistent with Policy E.1 of the Springfield 2030
Comprehensive Plan Economic Element whereby the applicant is proposing to redesignate a vacant,
undeveloped site with specific characteristics (e.g. size, location and configuration) and for a specific
intended employment use. Consistent with Policy E.11 and Implementation Strategy E.11.1 of the
Economic Element, the proposed employment use is Medical Services which represents a top "target
sector" as described in the City's Economic Opportunities Analysis.
Finding 46: By redesignating the subject property, the proposal meets Policy E.28 and
Implementation Strategy E.28.3 of the Economic Element which encourages employment in regional
clusters of target industries, particularly medical services. The proposed redesignation would
facilitate construction of a rehabilitation hospital on the site, which contributes to a local cluster of
health care and health-related users that have located or relocated into the North Gateway area of
Springfield. These include a major regional hospital, specialty clinics, medical laboratories,
physicians' offices, and administrative headquarters for health care plan and health insurance
providers.
Finding 47: The Economic Element policies and implementation actions of the Springfield 2030
Comprehensive Plan Economic Element apply to the subject site. The accompanying Zone Change
staff report (File 811-23-000181-TYP3) discusses and evaluates the application's consistency with
the adopted policies and implementation strategies of the Economic Element. The findings and
conclusions in Criterion C.1 of the Zone Change staff report are adopted herein by reference and in
part satisfy the requirements of Metro Plan Amendment Criterion B.2.
Conclusion: Based on the foregoing, the proposal to redesignate the subject property from Campus
Industrial to Commercial is consistent and compatible with the adopted policies of the Metro Plan and
the Springfield 2030 Comprehensive Plan Economic Element. The action reduces an acknowledged
surplus of 2-5 acre industrial sites and eliminates the deficit of 2-5 acre commercial sites in favor of
creating a key target industry development site. The action also contributes to an industry cluster of
similar medical and health care related sites in the Riverbend and North Gateway area of Springfield.
Therefore, the proposal meets Criterion B.2.
Conclusion and Recommendation
Based on the applicant's narrative, the findings herein, testimony submitted into the record, the criteria of
SDC 5.14.135 for approving amendments to the Metro Plan,the proposed Metro Plan diagram amendment
is consistent with the applicable criteria.
Ordinance No. 6471
Exhibit C Page 1 of 13
Staff Report and Findings
Springfield City Council
Zone Change Request
Hearing Date: January 16,2024
File Number: 811-23-000181-TYP3
Applicant: Micheal Reeder, Law Office of Mike Reeder
Property Owner: PeaceHealth
Site: Northeast corner of the intersection of Game Farm Road and Maple Island Road(Assessor's Map 17-
03-15-40, Tax Lot 1000 and portions of Tax Lots 800, 900 & 1100).
Request
Rezone approximately 4.99 acres of vacant property from Campus Industrial(CI)to Medical Services(MS).
Concurrently rezone the abutting public right-of-way for Game Farm Road and the eastern half of Maple
Island Road as measured from centerline abutting the subject site.
Site Information/Background
The application was initiated on August 24, 2023 and amended on October 2, 2023, and the Planning
Commission public hearing on the matter of the zone change request was held on November 7, 2023. The
zone change request is being processed concurrently with a Metro Plan diagram amendment submitted
under separate cover, File 811-23-000182-TYP4. The City Council reviewed both applications and the
Planning Commission's recommendations at a public hearing held on January 2, 2024.
The site that is subject of the zone change request is a 4.99-acre property located at the northeast corner of
the intersection of Game Farm Road and Maple Island Road. The property is comprised of four separate
tax lots (or portions thereof) and it adjoins the PeaceHealth Riverbend Annex facility to the east(Assessor's
Map 17-03-15-40, Tax Lot 1000 and portions of Tax Lots 800, 900 & 1100). The property is vacant and
contains a remnant filbert orchard that probably pre-dates the creation of the Campus Industrial zoning
district.
The subject site has corner frontage on Game Farm Road along the southern boundary and Maple Island
Road along the western boundary. The properties immediately to the west, north and east are zoned and
designated for Campus Industrial (CI) use. Properties to the south and southeast are zoned and designated
R-1 residential and R-3 residential. The property to the southwest is zoned and designated Mixed Use
Commercial (MUC). The applicant is proposing the zone change from Campus Industrial to Medical
Services as an initial step to facilitate future construction of a rehabilitation hospital on the site.
Staff is recommending concurrently annexing the abutting public right-of-way for Game Farm Road and
the eastern half of Maple Island Road to ensure the Springfield Zoning Map depicts the rezoned area
correctly and there are no remnant pieces of Campus Industrial zoning created through this action.
Notification and Written Comments
Notification of the November 7,2023 Planning Commission public hearing and January 2,2024 City Council
public hearing was sent to all property owners and residents within 300 feet of the site on October 17, 2023.
Newspaper notice of the public hearing meetings was published in The Chronicle on October 26, 2023.
Following the Planning Commission public hearing meeting, a second mailed notice of the January 2, 2024
Ordinance No. 6471
Exhibit C Page 2 of 13
City Council public hearing was sent to property owners and residents within 300 feet of the site on
December 7, 2023. A newspaper notice of the January 2, 2024 City Council public hearing meeting was
published in The Chronicle on December 14, 2023. Staff responded to one request for online access to
view the application materials and one telephone inquiry about the proposal during the period from initial
public notification on October 17, 2023 through to closure of the public hearing on January 2, 2024. One
written comment was received during the notification periods for both public hearing meetings (Attachment
7) and it is addressed in the Metro Plan Amendment staff report (Attachment 1, Exhibit B). At the public
hearing on January 2, 2024, the applicant provided testimony in support of the proposal and no other
testimony was received.
Criteria of Approval
Springfield Development Code (SDC) 5.22.100 contains the criteria of approval for the decision maker to
utilize during review of Zoning Map amendment requests. The Criteria of Zoning Map amendment approval
criteria are:
SDC 5.22-11 S CRITERIA
C. Zoning Map amendment criteria of approval:
1. Consistency with applicable Metro Plan policies and the Metro Plan diagram;
2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development
Plans and functional plans; and
3. The property is presently provided with adequate public facilities, services and transportation
networks to support the use, or these facilities, services and transportation networks are planned
to be provided concurrently with the development of the property.
4. Legislative Zoning Map amendments that involve a Metro Plan Diagram amendment shall:
a. Meet the approval criteria specified in Section 5.14-100; and
b. Comply with Oregon Administrative Rule (OAR) 660-012-0060, where applicable.
Proposed Findings In Support of Zone Change Approval
Criterion: Zoning Map amendment criteria of approval:
1. Consistency with applicable Metro Plan policies and the Metro Plan diagram;
Applicant's Narrative: "Following approval of the amendment to change the Plan Diagram
designation from Campus Industrial to Commercial, the zoning map amendment will be consistent.
There are no mandatory Metro Plan policies related to the proposed zoning."
Approval Standard: Metro Plan Chapter IV, Policy Ta states: "A property owner may initiate a
[Type I Metro Plan diagram] amendment for property they own at any time. Owner initiated
amendments are subject to the limitations for such amendments set out in the development code of
the home city."
Ordinance No. 6471
Exhibit C Page 3 of 13
Finding 1: The property owner initiated a concurrent Metro Plan diagram amendment in accordance
with provisions of SDC 5.14.100 (File 811-23-000182-TYP4). Rezoning 4.99 acres of the subject
property from Campus Industrial(CI)to Medical Services (MS)is consistent with the requested Metro
Plan diagram amendment initiated by the applicant. Upon adoption of the amending Ordinance, the
Metro Plan diagram would be amended and the requested zone change from Campus Industrial to
Medical Services would be consistent with the provisions of the adopted Comprehensive Plan. Prior
or concurrent amendment of the Metro Plan diagram will be required for the subject zone change
request to be approved.
Finding 2: The proposed zone change is consistent with provisions of the Metro Plan whereby zoning
can be monitored and adjusted as necessary to meet current urban land use demands. The requested
change from CI to MS would facilitate the future review and approval of a hospital facility on currently
vacant property. Additionally, the requested rezoning would allow for a recalibration of the amount
and type of uses within the Campus Industrial zone of north Springfield.
Finding 3: The subject site is part of a large, contiguous area of north Springfield that is zoned and
designated for Campus Industrial use. The Campus Industrial zoning district was implemented in this
area after adoption of the Gateway Refinement Plan in 1992. As of October 2023, there is still a
substantial area of vacant and undeveloped CI zoned lands including the subject site.
Finding 4: The City has initiated adoption of the Springfield 2030 Comprehensive Plan Land Use
Element that will also introduce a new,parcel-specific land use designation map for Springfield. Upon
implementation,the new Land Use Element and Comprehensive Plan Map will replace and supersede
the Metro Plan Land Use Element and Diagram. This initiative has already proceeded through joint
public hearings with the Springfield and Lane County Planning Commissions and is scheduled for
public hearings and final adoption with the Joint Elected Officials (Springfield and Lane County).
The new Land Use Element and Comprehensive Plan map are anticipated to become effective after
the subject application is adjudicated by the Springfield Planning Commission and City Council.
Therefore, no conflict exists for this proposed Metro Plan diagram amendment and Zone Change.
Finding 5: The policies of the Springfield 2030 Comprehensive Plan Economic Element also apply
to the subject site. The Economic Element of the City's 2030 Comprehensive Plan updated and
replaced the Economic Element of the Metro Plan. The"Economic Element"policies cited below are
from the Springfield 2030 Comprehensive Plan.
Approval Standard: Policy E.1 of the Economic Element states:
Designate an adequate supply of land that is planned and zoned to provide sites of varying locations,
configurations, size and characteristics as identified and described in the Economic Opportunity
Analysis to accommodate industrial and other employment over the planning period. These sites may
include vacant undeveloped land;partially developed sites with potential for additional development
through infill development; and sites with redevelopment potential.
Finding 6: The applicant is proposing to rezone approximately 5 acres of vacant, undeveloped
property to accommodate a targeted employment use, which in this case is a specialized medical
services facility (i.e. rehabilitation hospital). The proposed rezoning is consistent with Policy E.1.
Approval Standard: Policy EA of the Economic Element states:
Expand industrial site opportunities by evaluating and rezoning commercial, residential, and industrial
land for the best economic return for the community through the process of City refinement planning,
Ordinance No. 6471
Exhibit C Page 4 of 13
review of owner-initiated land use proposals, expanding the urban growth boundary, and other
means.
Finding 7: The subject rezoning request is an owner-initiated land use proposal. However, the
applicant is proposing to rezone the property from Campus Industrial to Medical Services to facilitate
development of an approximately 67,000 ft'medical facility on vacant property already owned by the
applicant. The proposed rezoning changes an industrial site to a Medical Services site, which is not
consistent with Policy EA.
Finding 8: While the proposed rezoning removes an industrial site from the City's inventory and
therefore acts contrary to Policy EA, there are other available industrial sites within the Campus
Industrial district and in other industrial zones within Springfield. As contemplated by Policy E-4,the
site is being rezoned to potentially provide a better economic return for the community. Based on the
findings in this section,the proposal satisfies the preponderance of applicable policies in the Economic
Element and should achieve a net benefit within the City's employment land base. For these reasons,
the proposed rezoning is consistent with Criterion 1.
Approval Standard: Policy E.5 of the Economic Element states:
Provide an adequate, competitive short-term supply of suitable land to respond to economic
development opportunities as they arise. "Short-term supply"means suitable land that is ready for
construction within one year of an application for a building permit or request for service extension.
"Competitive Short-term Supply"means the short-term supply of land provides a range of site sizes
and locations to accommodate the market needs of a variety of industrial and other employment
uses.
Finding 9: The subject proposal represents an economic development opportunity if the zoning for
the property is changed. By definition, the rezoning action would create a "competitive short-term
supply" site because the site is delineated from a larger contiguous landholding and the applicant
would be able to proceed immediately with submittal of site plans. The proposed rehabilitation
hospital represents an employment use because it is anticipated to have approximately 150 employees
(Applicant Narrative, Page 17). The proposed rezoning is consistent with Policy E.S.
Approval Standard: Policy E.6 of the Economic Element states:
Facilitate short term and long term redevelopment activity and increased efficiency of land use
through the urban renewal program, updates to refinement plans and the development review
process.
Finding 10: The subject rezoning request would allow for consideration of a new medical services
use on vacant property that is currently zoned for Campus Industrial use. In the absence of a rezoning,
the applicant would be unable to initiate the development review process for the proposed
rehabilitation hospital use. The proposed rezoning is consistent with Policy E.6
Approval Standard: Policy E.7 of the Economic Element states:
Where possible, concentrate development on sites with existing infrastructure or on sites where
infrastructure can be provided relatively easily and at a comparatively low cost.
Finding 11: The subject site has frontage on fully developed public streets along the southern and
western boundaries. A roundabout intersection at the northwest corner of the property can be modified
Ordinance No. 6471
Exhibit C Page 5 of 13
to provide direct access to the subject site. All public utilities are available to serve the subject site,
including electricity, telecommunications, water, sanitary sewer and storm sewer. The property is
close to major transportation corridors and the Gateway-Riverbend EmX bus rapid transit route which
runs along International Way. The infrastructure needed to serve the proposed medical services on
the site are already available, or can be provided without costly extensions or upgrades to adjacent
utilities. Therefore, the proposed rezoning is consistent with Policy E.7.
Approval Standards: Policy E.11 of the Economic Element states:
Integrate opportunistic economic development objectives into Springfield's land use and supply
analyses and policies.
Implementation Strategy E.11.1 of the Economic Element states:
Plan, zone and reserve a sufficient supply of industrial and commercial buildable land to create
opportunity sites for employment uses identified in the 2015 Economic Opportunities Analysis(EOA),
with an initial emphasis on Target Industries listed in the analysis Table S-1, Target Industries,
Springfield 2010-2030 (page iii-iv.)
Finding 12: The proposed rezoning would create an approximately 5-acre opportunity site for
construction of a rehabilitation hospital on currently vacant property. The proposed rehabilitation
hospital represents an employment use in Medical Services which is the number one listed target
industry in Table S-1 of the 2015 Economic Opportunities Analysis. The proposed rezoning is
consistent with Policy E.11 and Implementation Strategy E.11.1.
Approval Standards: Policy E.12 of the Economic Element states:
Recruit or support businesses that pay higher than average wages for the region (as reported by the
Oregon Employment Department) to diversify and expand Springfield's economy.
Implementation Strategy E.12.5 of the Economic Element states:
Support increased potential for employment in one of the regional industry clusters.
Finding 13: The proposed rezoning would facilitate construction of a medical services facility that
pays higher than average wages for Lane County according to 2023 wage information from the
Oregon Employment Department. These medical sector wages include nurses,physicians, physician
assistants,physical therapists, medical assistants, medical technicians, and hospital administrators.
Finding 14: The adjoining property to the east is occupied by the PeaceHealth Riverbend annex,
which operates as a medical laboratory facility and administrative offices for the nearby Sacred Heart
Medical Center at Riverbend. The adjacent property to the west is occupied by PacificSource,which
operates as a health insurance provider and health care plan administrator. The proposed rehabilitation
hospital is located in-between the PeaceHealth and PacificSource buildings and it would represent the
third medical services and health care related facility on the two adjacent sites. In combination with
the nearby Sacred Heart Riverbend Medical Center,this aggregation contributes to a medical services
industry cluster as identified in the City's acknowledged Commercial Industrial Buildable Lands
Inventory and Economic Opportunities Analysis (CIBL)(See CIBL page 132). An"industrial cluster"
is explained in the CIBL as including sectors with a higher-than-average number of businesses within
a geographic area and with anticipated higher than average employment growth (See CIBL pp. 129).
Ordinance No. 6471
Exhibit C Page 6 of 13
The Sacred Heart Riverbend campus is described in the CIBL as an emerging medical services cluster
(See CIBL pg. 132). In this case, the subject property would become part of the cluster of medical
and health care related facilities (listed in Finding 20 below)that are located within an approximately
0.5 square mile area of the Gateway Refinement Plan: the cluster area begins at the intersection of
Riverbend Drive at Martin Luther King, Jr. Boulevard, incorporates the Sacred Heart at Riverbend
hospital campus, and extends in a north and northwesterly direction to International Way near the
intersection with Sports Way. The proposed rezoning is consistent with Policy E.12 and
Implementation Strategy E.12.5.
Approval Standard: Policy E.16 of the Economic Element states:
Consider the economic opportunities provided by transportation corridors and seek to maximize
economic uses in corridors that provide the most optimal locations and best exposure for existing
and future commercial and industrial uses.
Finding 15: In combination with the concurrent Metro Plan diagram amendment, the proposed
rezoning introduces a new zoning district into a large, contiguous area of existing Campus Industrial
zoning. However, this is the most expeditious step necessary (and available under current
Development Code provisions)to create a new,viable site for the proposed rehabilitation hospital on
property already owned by the applicant.
Finding 16: Provisions of the Campus Industrial zoning district specifically preclude the type of
medical services facility proposed by the applicant. Because the property has been vacant and
continues to host a remnant filbert orchard that likely pre-dates the implementation of CI zoning more
than 30 years ago,it seems unlikely that another potential site user would be displaced by the requested
rezoning action. Additionally,the proposed rezoning is the minimum area necessary to accommodate
the rehabilitation hospital and there is vacant CI zoned property remaining to the north of the site.
Finding 17: The applicant has identified the subject property as a potential site and stated a market
need that can be addressed by the proposed rezoning. The proposed rezoning looks to capitalize on
siting a new 67,000 ft'medical facility with 150 employees on a vacant,undeveloped piece of property
at the intersection of Game Farm Road and Maple Island Road. Along the southern boundary of the
site, the proposed rehabilitation hospital has frontage on Game Farm Road which is developed as an
urban major collector street. The primary frontage along the western boundary of the site is located
on Maple Island Road,which is developed as a local street. The property has an existing roundabout
intersection at the northwest corner that can be readily extended to provide future access to the site.
The property's corner location on two existing developed public streets with roundabout intersections
offers a comparative advantage to other Campus Industrial zoned sites in the vicinity that are either
not currently annexed (and therefore not development-ready) or that lack fully improved public street
frontages (such as properties along Deadmond Ferry Road east of International Way).
Finding 18: The subject property has been vacant and unused for urban land use activities since the
Campus Industrial zoning district was established in 1992. The economic opportunity presented by
the applicant is to utilize land that has been zoned for urban uses but has remained vacant for more
than 30 years. In addition to developing a currently vacant piece of property, the proposed end user
(i.e. medical services) is a key target industry (as defined in the CIBL) that generates considerable
direct and indirect economic benefits for the City and region. The proposed rezoning is consistent
with Policy E.16.
Ordinance No. 6471
Exhibit C Page 7 of 13
Approval Standards: Policy E.28 of the Economic Element states:
Increase the potential for employment in the regional industry clusters, including: Health Care,
Communication Equipment, Information Technology (Software), Metals (Wholesalers), Local Food
and Beverage Production and Distribution, Specialty Agriculture, Wood & Forest Products, and
Transportation Equipment.
Implementation Strategy 28.3 of the Economic Element states:
Promote further development of the health care cluster by examining land-use policies and, if
necessary, modifying those policies to promote health care cluster development where the
supporting uses are consistent with 2030 Plan policies or when policies are amended through a
district or corridor refinement planning process.
Finding 19: The economic conditions of 2024 are significantly different than when the Campus
Industrial district was initially created in 1992. It is also notable that many of the original"colonizers"
of the City's Campus Industrial district—such as Sony, Symantec and Royal Caribbean—are no longer
operating in the area. Instead, other users have gravitated to the area and repurposed the buildings
and facilities. Within close proximity to the Sacred Heart Medical Center, several of the users are in
health care and closely related industries.
Finding 20: The proposed rezoning would introduce another health care related use (i.e. specialized
medical services facility) into a local cluster of similar and complementary uses. These existing uses
include PacificSource health plans, the PeaceHealth Riverbend annex (medical laboratories), Sacred
Heart Medical Center at Riverbend campus(which incorporates the main hospital building,Riverbend
Pavilion building, Northwest Specialty Clinics building and Ronald McDonald House), PeaceHealth
medical practitioners operating at the former Birthing Center on Deadmond Ferry Road, and the
Women's Care center on Martin Luther King Jr. Boulevard at Riverbend Drive. All of these facilities
are clustered in a roughly 0.5-square-mile area of the north Gateway region of Springfield. The
proposed rezoning is consistent with Policy E.28 and Implementation Strategy E.28.1.
Conclusion: The proposed rezoning meets Criterion 1.
2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development
Plans and functional plans;
Applicant's Narrative: "The Subject Property is within the boundary ofthe Gateway Refinement Plan
adopted on November 9, 1992. In 1992, the Subject Property was shown on the land use diagram as
part of the McKenzie-Gateway Special Light Industrial site. Below are applicable Gateway
Refinement Plan policies in bold italics followed by the applicant's findings.
8.0 Provide for an efficient and flexible transportation system for the McKenzie-Gateway SLI Site.
9.0 Improve the appearance and effectiveness of the main approaches to the McKenzie-Gateway
SLI Site. . . .
Through substantial public and private investments, significant capital improvements have improved
the transportation system serving the McKenzie-Gateway SLI Site. The proposed Zone Change will
not have an adverse impact on the transportation system. The planned development will increase
potential transit riders using the nearby EmX stations.
Ordinance No. 6471
Exhibit C Page 8 of 13
10.0 Mitigate the impacts of incremental (SLI) development on existing onsite (non-SLI) uses
occupying the McKenzie-Gateway SLI Site.
Policy 10.0 recognized that full development of the McKenzie-Gateway SLI Site would likely occur
incrementally. The Subject Property is located at the southwest corner of the RiverBend Annex
campus. The impetus for the proposed Zone Change is the proposed use of the Subject Property for a
new expanded PeaceHealth RiverBend In-Patient Rehabilitation Facility. Through the site plan
review process, any development will be required to comply with SDC standards including
requirements for landscaping, building setbacks,parking, etc. Development of the Subject Property
will be compatible with surrounding land uses including the remaining portion of the RiverBend
Annex campus.
11.0 Ensure that development plans adequately consider the site's natural landscape features and
amenities, and provide for the development needs of future developers.
The proposed Zone Change to Medical Services will allow different uses than the existing CI Campus
Industrial zone but many of the development standards, such as landscape requirements for parking
areas and stormwater management will remain the same. The site plan review process requires that
developers adequately consider existing site conditions.
12.0 Encourage the preservation and/or enhancement of reminders of the area's rich agricultural
heritage, which are found in the McKenzie-Gateway SLI area.
The policy above is directed towards the City of Springfield encouraging historic preservation but is
not a mandatory policy for reviewing a zone change request. The Subject Property contains a small
remnant of a significantly larger filbert orchard to the west of the site. The applicant will consider
ways to provide a reminder of the area's rich agricultural heritage such as a commemorative plaque
or display ofhistoric photos in the building. Regardless ofzoning, any new development will require
changes in grade making it impracticable to retain the orchard.
13.0 Ensure adequate storm drainage management planning emphasizing the minimization of
negative impacts on water quality and quantity resulting from McKenzie-Gateway SLI Site
development.
Any development of the Subject Property will require compliance with City, state and federal water
quality standards and to review ofproposed storm drainage for the site."
Finding 21: The applicant's narrative responses for Policies 8.0 — 13.0 are incorporated as findings
herein and demonstrate the proposal is consistent with Criterion 2.
Finding 22: For Policy 12.0, it is not logical or feasible to preserve remnant filbert orchards on the
subject site—especially groves that have not been actively managed for productivity, blight and other
issues. The current and proposed zoning is not conducive to maintaining agricultural activities on the
site. Additionally, other orchards in the vicinity have been incrementally displaced by buildings,
infrastructure, and manicured landscaping as the Campus Industrial district has developed and
evolved. The applicant's suggestion to commemorate the historic agricultural use through aplaque or
other visual display is commendable and supported by the City of Springfield.
Finding 23: For Policy 13.0,upon rezoning of the subject property,the proposed development will be
subject to the stormwater regulatory requirements in effect on the date of submittal. Staff advises that
Ordinance No. 6471
Exhibit C Page 9 of 13
these stormwater requirements are increasingly stringent and far more complex and detailed than what
was originally contemplated in the 1992 Refinement Plan. For this reason, any stormwater
management design for the subject site that meets current Development Code provisions and the City's
adopted Stormwater Management requirements will satisfy the stated standards referenced in the
original Refinement Plan but under a stricter regulatory environment.
Conclusion: The proposed rezoning meets Criterion 2.
3. The property is presently provided with adequate public facilities, services and transportation
networks to support the use,or these facilities, services and transportation networks are planned
to be provided concurrently with the development of the property.
Applicant's Narrative: "The Subject Property is within the City limits and is presently provided with
adequate public facilities, services and transportation networks to support the planned use."
Finding 24: The property requested for zone change has frontage on Game Farm Road (which is
classified as a collector street), and Maple Island Road(classified as a local street). Along the southern
boundary of the property, Game Farm Road is developed with one vehicle travel lane and one bicycle
lane in each direction and there is a short segment of bi-directional center turn lane. The Game Farm
Road frontage has existing setback sidewalk, street trees and street lighting. Along the western
boundary of the property, Maple Island Road is developed with one vehicle travel lane and bicycle
lane in each direction. Street trees and street lighting has been installed. Setback sidewalks have been
installed adjacent to the roundabout intersections at the northwest and southwest corners of the
property, but the western edge of the subject site lacks a continuous sidewalk connection.
Additionally, the bicycle lanes on Maple Island Road converge to the adjacent sidewalk at the
southwest and northwest corners of the site where there are roundabout intersections. Upon future
development of the subject property, should this occur, the developer will be responsible for
completing the sidewalk connection along Maple Island Road.
Finding 25: The proposed rezoning would allow for introduction of a new medical services use within
an area of similar and complementary uses. The applicant is proposing to rezone only the property
area necessary for the rehabilitation hospital,which leaves other vacant Campus Industrial land to the
north of the site available for future development.
Finding 26: The northwest corner of the proposed development site is located about 850 feet walking
distance from bus rapid transit service on International Way. Existing transit platforms are positioned
just to the west of the roundabout intersection at Maple Island Road and International Way.
Finding 27: The entire Campus Industrial district—which this site is proposed to be a part of—has
an interconnected network of sidewalks and pedestrian walkways that are commonly used for exercise
and recreation by local employees. The proposed rehabilitation hospital would have similar walkable
facilities on the public street frontages and internal to the site.
Finding 28: The Campus Industrial district of north Springfield has been provided with a full suite of
public utilities and services with sufficient capacity to support the requested rezoning from CI to MS.
Existing public utilities within or on the perimeter of the subject property include the following:
Sanitary Sewer: There is an existing 8-inch sanitary sewer line within Maple Island Road that
runs southward to the intersection with Game Farm Road and then eastward to an existing
sanitary sewer pump station at the southeast corner of the site. The pump station serves the
Ordinance No. 6471
Exhibit C Page 10 of 13
adjacent Campus Industrial and R-3 residential areas to the north and east of Game Farm Road
and Deadmond Ferry Road, including the subject site. Collected sewage is pumped westward
to the regional treatment plant on River Avenue in Eugene. To accommodate the proposed
development, the applicant will be responsible for modeling anticipated sewage flows from
the site to ensure they meet projected volumes as contemplated by the Campus Industrial
designation and zoning and the City's Sanitary Sewer Master Plan. Additionally,the applicant
may be proportionally responsible for any upgrades to the existing sanitary sewer pump station
necessary to increase capacity and flows as new development occurs within the service area.
Review and approval of sanitary sewer plans will be done in conjunction with detailed site
plans for the proposed development. Confirmation of sanitary sewer capacity in the system
and pump station serving the subject property is a condition of approval to be satisfied
prior to or concurrently with Site Plan Review for the proposed development.
• Storm Sewer: There are public storm sewer lines that run along the Maple Island Road and
Game Farm Road frontages of the subject site. These storm sewer lines have been sized for
full buildout of the entire Campus Industrial district of north Springfield. At present, not all
sites within the anticipated catchment area have fully developed so there is some excess
capacity in the public stormwater system. However, evolving stormwater regulations now
require more infiltration and management of drainage on individual sites and discharge to the
public system is limited to pre-development flow conditions, or less. As future development
occurs the developer will be responsible for installing private stormwater facilities to manage
drainage on the site.
• Water: Springfield Utility Board (SUB) water service is located along the public street
frontages of the property. The applicant will need to review the location and availability of
public fire hydrants as site development plans are prepared for the project. Confirmation of
existing and proposed fire hydrant locations, coverage areas and flow capacities
necessary to serve the proposed rehabilitation hospital is a condition of approval to be
satisfied prior to or concurrently with Site Plan Review for the proposed development.
• Electricity: SUB Electric has underground conduit and electrical facilities along the Maple
Island Road frontage of the property. There are existing overhead lines on the south side of
Deadmond Ferry Road and Game Farm Road that can also serve the subject property. The
planned electrical facilities are to be placed underground and area suitable for future
development of the site with a medical services use.
• Telecommunications: Comcast and CenturyLink have telecommunication facilities along the
Maple Island Road and Game Farm Road frontages of the property, including fiberoptic lines.
The existing and planned facilities are suitable for future development of the site with a
medical services use.
Finding 29: Should the applicant's concurrent applications for Metro Plan amendment and zone
change be approved, future development of the subject site with a medical services use would be
subject to the land use approval process outlined in SDC 5.17.100 (Site Plan Review).
Conclusion: As conditioned, the proposed rezoning meets Criterion 3.
4. Legislative Zoning Map amendments that involve a Metro Plan Diagram amendment shall:
a. Meet the approval criteria specified in Section 5.14.100; and
Applicant's Narrative: "The findings provided above related to SDC 5.14.100 are hereby
incorporated by reference. "
Ordinance No. 6471
Exhibit C Page 11 of 13
b. Comply with Oregon Administrative Rule(OAR) 660-012-0060,where applicable.
Applicant's Narrative: "The applicant retained a licensed traffic engineer (Sandow
Engineering) to prepare a Traffic Impact Analysis and Transportation Planning Rule
Analysis. The report contains the following findings:
• The addition of development trips does not trigger any intersections to not meet the LOS
standards.
• The intersection of Gateway Street at Beldine Road currently operates at LOS F during
the PMpeak hour. The zone change and proposed use will add less than a 3% increase
in trips. This trip increase is insignificant in terms of impact on the intersection.
Therefore, no mitigation is recommended.
• The addition of development traffic does not substantially increase queuing conditions.
• There is no off-site mitigation needed for this development.
• TPR findings are demonstrated to be met.
Based upon the findings above, the zone change complies with the Transportation Planning
Rule (TPR). For further information, refer to Exhibit I Traffic Impact Analysis and
Transportation Planning Rule Analysis."
Finding 30: The applicant has submitted a concurrent Metro Plan diagram amendment
application (File 811-23-000182-TYP4) under separate cover. The applicant's submittal
materials,narrative, and staff findings and recommendations demonstrate compliance with the
Metro Plan amendment provisions of Chapter IV of the Metro Plan and SDC 5.14.135.
Finding 31: The applicant has initiated an amendment to the Metro Plan diagram to change
the designation for approximately 4.99 acres of property from Campus Industrial to
Commercial under separate cover (File 811-23-000182-TYP4). That amendment will also
include redesignating the land to Community Commercial in the Gateway Refinement Plan.
Prior or concurrent redesignation to Community Commercial is necessary for the subject site
to be rezoned from Cl to MS. In accordance with SDC 3.2.505(B), the Medical Services
zoning district can be implemented on a limited range of land use designations including
Community Commercial, Major Retail Commercial, Mixed Use, High Density Residential
and Medium Density Residential provided these sites abut a collector or arterial street.
Finding 32: The subject site is proposed to be redesignated to Commercial (under the Metro
Plan diagram) and concurrently redesignated to Community Commercial under the Gateway
Refinement Plan diagram. The site abuts a collector street (Game Farm Road) along the
southern boundary. Therefore, provided the requested Metro Plan diagram and concurrent
Gateway Refinement Plan diagram amendments are adopted, the subject site meets the
requirements of SDC 3.2.505(B) for implementation of the Medical Services zoning district.
Finding 33: The rezoning area is a contiguous 4.99 acres plus adjacent public rights-of-way
for Game Farm Road and the eastern half of Maple Island Road,which meets the requirements
of SDC 3.2.505(C) for implementation of the Medical Services district on sites at least 3
contiguous acres in size. The concurrent rezoning of abutting public rights-of-way eliminates
remnant pieces of Campus Industrial zoning on the property perimeter.
Ordinance No. 6471
Exhibit C Page 12 of 13
Finding 34: The applicant has submitted a supporting Traffic Impact Analysis for the project,
which meets the requirements of SDC 3.2.505(E) for implementation of the Medical Services
district.
Finding 35: The requested zone change is being undertaken as a site-specific change in
compliance with provisions of the adopted Metro Plan and the Springfield Development Code.
Oregon Administrative Rules (OAR) 660-012-0060 requires that, "if an amendment to a
functional plan, an acknowledged comprehensive plan, or a land use regulation (including a
zoning map), would significantly affect an existing or planned transportation facility, then the
local government must put in place measures"to mitigate the impact, as defined in OAR 660-
012-0060(2). The findings in the applicant's Traffic Impact Assessment (TIA) and the
findings under Goal 12 provided in the concurrent Metro Plan diagram and Gateway
Refinement Plan amendment contemplate the proposed zone change from CI to MS for the
subject property. Based on those findings, which are incorporated by reference herein, no
significant affect will occur and therefore no mitigation measures are necessary. Therefore,
the rezoning complies with OAR 660-012-0060.
Conclusion: The proposed rezoning of the subject property and additional public rights-of-
way meets Criterion 4.
Conclusion: Based on the above-listed criteria, as conditioned herein the criteria for rezoning have been
met.
Conditions of Approval
SDC Section 5.22.120 allows for the Approval Authority to attach conditions of approval to a zone change
request to ensure the application fully meets the criteria of approval. The specific language from the Code
section is cited below:
5.22.120 CONDITIONS
The Approval Authority may attach conditions as may be reasonably necessary in order to allow the
Zoning Map amendment to be granted. Staff is recommending the following conditions of approval.
Conditions of Approval:
1. Prior to or concurrent with submittal of a Site Plan Review application for the proposed
rehabilitation hospital or another permitted medical services use,the applicant must prepare and
submit a capacity analysis for the sanitary sewer system and pump station serving the property.
The analysis must confirm that adequate sanitary sewer capacity exists for the proposed
development. Alternatively, prior to City approval of the Site Plan Review application, the
applicant must demonstrate that the necessary capacity can be provided through pump station
upgrades. The applicant is responsible for paying the costs of any necessary pump station
upgrades in proportion to the impact of the proposed development, prior to issuance of building
permits for the project.
2. Prior to or concurrent with submittal of a Site Plan Review application for the proposed
rehabilitation hospital or another permitted medical services use,the applicant must prepare and
submit a fire hydrant location,coverage,and flow capacity analysis for the site. The analysis must
confirm that adequate capacity and coverage exists or can be provided for the proposed
Ordinance No. 6471
Exhibit C Page 13 of 13
development through installation of new fire hydrants. The applicant is responsible for paying
the costs of any necessary water system upgrades in proportion to the impact of the proposed
development,prior to issuance of building permits for the project.
Ordinance No. 6471