HomeMy WebLinkAboutMeeting Packet Planner 9/23/2024
Completeness Check
Meeting
Development and Public Works Department
Conference Room 616 & Zoom
COMPLETENESS CHECK MEETING DATE:
Tuesday, October 1, 2024
11:00 a.m. - 12:00 p.m.
DPW Conference Room 616 and Zoom
Completeness Check Mtg (Site Plan Review) 811-24-000222-PRE 811-22-000270-PROJ EWEB
Assessor’s Map: 18-03-02-20 TL: 3300
Address: McVay Hwy.
Existing Use: Vacant
Applicant has submitted plans to annex for future development
Planner: Andy Limbird
Meeting: Tuesday, October 1, 2024 11:00 – 12:00 via Zoom and Conference Rm 616
SITE
VICINITY MAP
811-24-000225-PRE Completeness Check Meeting
18-03-02-33 5100, 18-03-03-40 300 & 700
Franklin Blvd and I-5
Eugene Water & Electric Board
City of Springfield
EWEB
Glenwood Second Source
ANNEXATION APPLICATION
September 6, 2024
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL INDEX
INDEX
LAND USE APPLICATION FORMS
• Annexation Pre-Submittal
o Application Form
WRITTEN STATEMENT
1.0 Project Information ........................................................................................................... 1
2.0 Description of Proposal .................................................................................................... 3
3.0 Existing Conditions ............................................................................................................ 7
4.0 Submittal Requirements ................................................................................................. 10
5.0 Approval Criteria and Standards .................................................................................... 13
EXHIBITS
Petition/Petition Signature Sheet .............................................................................................. A
Owners Worksheet ..................................................................................................................... B
Supplemental Information Form ............................................................................................... C
Deeds ........................................................................................................................................... D
Preliminary Title Report ............................................................................................................. E
Legal Description .........................................................................................................................F
Cadastral Map .............................................................................................................................. G
Vicinity Map .................................................................................................................................. H
Waiver Forms ................................................................................................................................. I
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 1
1.0 PROJECT INFORMATION
Applicant’s Request: Eugene Water & Electric Board (EWEB) requests Annexation
approval to enable the construction of a second source water
intake facility and treatment plant to increase system resiliency
and to better serve local public utility customers.
Property Owner: Eugene Water and Electric Board (EWEB)
4200 Roosevelt Blvd.
Eugene, OR 97402
Applicant: Laura Farthing, PE
Senior Engineer, Water Division
Eugene Water & Electric Board (EWEB)
4200 Roosevelt Blvd.
Eugene, OR 97402
541.685.7464
Laura.Farthing@EWEB.org
Applicant’s Representative: Colin McArthur, AICP
Principal Planner
Cameron McCarthy
160 E. Broadway
Eugene, OR 97401
541.485.7385
cmcarthur@cameronmccarthy.com
Project Name: Glenwood Second Source
Subject Property: Assessor’s Map, Tax Lot Number
18030233, 05100
1.32 acres (57,499 square feet)
18030340, 00300
7.74 acres (337,154 square feet)
18030340, 00700
15.94 acres (694,346 square feet)
Location: McVay Highway and Interstate 5
Geographic Coordinates
18030233, 05100
X 4256760 Y 870762 (State Plane X,Y)
Latitude: 44.0283° Longitude: -123.0268°
18030340, 00300
X 4256106 Y 872419 (State Plane X,Y)
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 2
Latitude: 44.0328° Longitude: -123.0295°
18030340, 00700
X 4256387 Y 871313 (State Plane X,Y)
Latitude: 44.0298° Longitude: -123.0283°
Property Size: 25.00 acres (1,089,000 square feet)
Plan Designation: Parks and Open Space
Plan Overlay Designation: None
Zoning Designation: Glenwood Riverfront Mixed-Use Plan District
Employment Mixed-Use Zoning District
Zone Overlay Designation: Urbanizable Fringe Overlay District (UF-10)
Upon Annexation:
Drinking Water Protection Overlay District (/DWP)
Willamette Greenway Overlay District (/WG)
Floodplain Overlay District (/FP)
Hillside Development Overlay District (/HD)
Development Issues Meeting: 811-23-00049-PRE, March 6, 2023
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 3
2.0 DESCRIPTION OF PROPOSAL
2.1 Overview
The Eugene Water & Electric Board (EWEB), the “applicant,” requests Annexation approval to
enable the construction of a second drinking water intake and treatment plant in Glenwood to
increase system resiliency and to better serve local public utility customers. This application
requests Type IV Annexation approval to incorporate the following tax lots (TL) (Assessor’s Map
No., Tax Lot No.), the designated locations of the EWEB second source facilities, within Springfield
city limits to extend key urban services to the property.
• 18030233, 05100
• 18030340, 00300
• 18030340, 00700
2.2 Background
Currently, EWEB’s only source of drinking water is the McKenzie River, with an intake and
treatment facility near Hayden Bridge. Having a single potable water source presents significant
risks to EWEB residential, business, and institutional water consumers from service disruptions due
to equipment failure, hazardous spills within the river, or natural disasters. To diversify its water
supply and improve resiliency, EWEB is proposing to develop its existing water right to surface
water on the Willamette River below the confluence of the Middle and Coast Forks.
The proposed project includes an intake facility, water treatment and filtration facility, transmission
piping to connect the new facilities to the existing water system, and associated infrastructure.
EWEB plans to complete preliminary design and secure Plan and Code amendment and
annexation approvals in 2025, with site-specific permit approvals and completion of final design
between 2025-2026, construction in 2026-2027, and having the plant operational by 2027-2028.
Given the risks of a single water supply source, EWEB began exploring options for a redundant
source on the Willamette River in 2012. This started with adding a diversion point to an existing
EWEB water right on the river just below the confluence of the Middle Fork and the Coast Fork of
the Willamette. EWEB then acquired property at this location for a water intake facility following a
Development Issues Meeting (DIM) with the City of Springfield (City) on October 9, 2014.1 EWEB
evaluated several sites for the proposed water treatment plant with the criteria that they must be
between the river intake and the point where treated water would enter EWEB’s water distribution
system near the I-5 crossing of the Willamette River. EWEB then acquired the preferred property
after a DIM with the City on December 17, 2015.2
The subject site is within Subarea D of the Glenwood Refinement Plan (GRP), adopted by the City
and Lane County as a neighborhood refinement to the Metro Plan in 2012. Subsequently, the
Glenwood Riverfront Mixed-Use Plan District was incorporated into the Springfield Development
Code as SDC 3.4-200. While the GRP and Code allow certain “low impact public utility facilities,”
there is no provision for “high impact public utility facilities” within the subject site’s Employment
Mixed Use zoning district. The proposed water treatment and filtration facility is considered a high-
1 811-14-000069-PRE, October 9, 2015
2 811-15-000069-DIM, December 17, 2015
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 4
impact public utility facility. The GRP text does not anticipate the size and type of water facilities
proposed by EWEB. Therefore, amendments to specific GRP text and the table for allowed uses in
the SDC for the Glenwood Plan District are required for the planned project. The proposed plan
and code amendments are not necessary for annexation approval.
Following plan and GRP code amendments, and Annexation, Site Plan Review and other
associated site-specific land use applications (i.e., Willamette Greenway Overlay District, Floodplain
Development Overlay, and Hillside Development Overlay District) are required for the project.
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 5
2.3 Location and Context
The proposed second source site is between McVay Highway and Interstate 5 (I-5). The subject
site is below the confluence of the Middle and Coast Forks of the Willamette River in Glenwood,
within the southwest portion of the Springfield Urban Growth Boundary. The site comprises the
following five tax lots (Assessor’s Map No., Tax Lot No.):
• 18030220, 03300
• 18030232, 03800
• 18030233, 05100
• 18030340, 00300
• 18030340, 00700
TL 03300 and TL 3800 were annexed into the Springfield City Limits in 2009.3 The other three tax
lots (in bold text) have yet to be annexed, are outside Springfield City Limits, and are the subject of
this application. Annexation application approval of TL 05100, TL 00300, and TL 00700 is required
before development.
SDC 5.7.140.A. requires that the affected territory proposed to be annexed be within the City’s
urban growth boundary and contiguous to the City Limits or separated from the City only by public
right-of-way or a stream, lake, or other body of water.
• TL 05100 is contiguous to the City Limits at the west property boundary.
• TL 00700 is contiguous to the City Limits at the east property boundary.
• TL 00300 is separated from the City Limits at the north property boundary by right of way, is
contiguous to TL 00700 at the south property boundary and will be contiguous upon annexation
of TL 00700.
EWEB owns these tax lots outright. The tax lots are designated Parks and Open Space by the
Metro Plan and Employment Mixed Use (M.U.) by the City of Springfield Zoning Map.
Adjacent TL 0300 and 0700 are bounded to the north/northwest by land owned by SUB, to the west
by I-5, to the east by the Union Pacific railroad and McVay Highway, and to the south by residential
land with a single-family home. Tax lot 5100 is bounded to the west by McVay Highway and to the
east by the Union Pacific railroad. Surrounding the property are designated Parks and Open Space
by the Metro Plan and Employment Mixed-Use by the GRP.
3 C-SP2009-LRP2009-000
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 6
2.4 Purpose and Need
As noted previously, annexation application approval for the Glenwood Second Source site is
required to extend key urban services to the subject property. The need for an Annexation is
evidenced by Metro Plan and Springfield Comprehensive Plan urbanization policies requiring
annexation to extend key urban services to land outside of city limits boundaries.
EWEB is planning the development of water intake and treatment facilities on property outside city
limits. Given the referenced Growth Management Policies, Annexation approval is required to
facilitate the construction of the facilities. As a whole, these facilities will protect residents,
businesses, and institutions who rely on EWEB for water from service disruptions due to equipment
failure, hazardous spills within the river, or natural disasters. The facilities will diversify EWEB’s
water supply and increase community resiliency.
2.5 Land Use Requirements
The subject property is currently located outside the city limits of the City of Springfield. As
described above, this is a request for Type IV annexation approval as specified in SDC 5.7-100.
The following action is necessary:
• Type IV Annexation approval to enable the extension of city services to property currently
outside city limits.
Findings demonstrating consistency with applicable policies and approval criteria specific to the
annexation request are provided in Section 5 Approval Criteria. The attached materials and
enclosed findings demonstrate compliance with all annexation application submittal requirements
and criteria listed in SDC Sections:
• 5.7-100 Annexations; and
• 5.4-100 Development Applications.
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 7
3.0 EXISTING CONDITIONS
3.1 Site
Development
The subject property is developed with a gravel drive access from McVay Highway/Franklin
Boulevard and from other properties to the north and south. TL 00300 contains a billboard and
substation. The remainder of the subject property is undeveloped.
Natural Features
There are four primary vegetation communities on the subject site: prairie-savanna, mixed oak-
conifer forest, mixed oak-conifer woodland, and mixed conifer-hardwood. Of the primary vegetation
communities, the subject property most closely resembles the mixed conifer-hardwood community.
The site also has numerous invasive species. No federally listed rare plant species have been
found on the subject property.
Soils
The site is characterized predominantly by different classifications of loam, according to the Natural
Resource Conservation Service (NRCS) soil database. Hills and slopes are the most common
landforms where loam is dominant and is a well-draining substrate.
Table 1. NRCS Soil Types
Property Soil Map
Unit#
Soil Type Description % of
Taxlot
Ag
Class
Hydric %
TL 05100 99H Ochrepts and Umbrepts, Very
Steep
53% 6 0
TL 05100 108F Philomath Cobbly Silty Clay,
12 to 45 Percent Slopes
37% 6 0
TL 05100 22 Camas Gravelly Sandy Loam,
Occasionally Flooded
5% 4 7
TL 05100 43E Dixonville-Philomath-Hazelair
Complex, 12 to 35 Percent
Slopes
4% 4 0
TL 00300 108F Philomath Cobbly Silty Clay,
12 to 45 Percent Slopes
53% 6 0
TL 00300 11D Bellpine Silty Clay Loam, 12 to
20 Percent Slopes
37% 3 0
TL 00300 22 Camas Gravelly Sandy Loam,
Occasionally Flooded
10% 4 7
TL 00300 97 Newberg-Urban Land
Complex
0% 2 0
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 8
TL 00700 108F Philomath Cobbly Silty Clay,
12 to 45 Percent Slopes
56% 6 0
TL 00700 22 Camas Gravelly Sandy Loam,
Occasionally Flooded
24% 4 7
TL 00700 11D Bellpine Silty Clay Loam, 12 to
20 Percent Slopes
20% 3 0
3.2 Transportation
Transportation
As noted previously, the subject property is accessed by a gravel drive extending from McVay
Highway/Franklin Boulevard and from other properties to the north and south. Other than the
gravel drive, there are no roads on the subject property.
Springfield’s 2035 Transportation System Plan (TSP) identifies two potential future roadway
projects in the vicinity of the subject property: R-20 and PB-18. R-20 addresses improvements on
McVay Highway/Franklin Boulevard from East 19th Avenue to I-5 and involves the construction of a
two- or three-lane cross-section with sidewalks, bicycle facilities, and transit facilities consistent with
the Main Street/McVay Highway Transit Feasibility study. PB-18 addresses the construction of a
new multiuse (pedestrian/bike) 12-foot-wide path from the Willamette River bridges to the UGB.
The Springfield Conceptual Local Street Map does not show proposed new streets in the vicinity of
the subject property. The annexation agreement between EWEB and the City resulting from this
application will address future transportation facilities.
3.3 Urban Services
Water Service
EWEB is planning the construction of a second drinking water intake and treatment plant to
increase system resiliency and to better serve local public utility customers. The water treatment
plant will generate water for the subject development. Therefore, water service is not required for
the development or is not a requirement of annexation approval.
Wastewater Service
There is an existing 8-inch wastewater main that increases to 12-inch located at TL 01200
(18030340), owned by the City of Springfield, that is approximately 270 feet from the eastern edge
of TL 00700. Another 8 to 12-inch wastewater main is located in the Newman Street right-of-way
that is approximately 150 feet from the eastern edge of TL 00300. Connection to one or both
facilities will require boring under the Union Pacific Railroad right-of-way or utilizing an existing
culvert crossing. The facility at TL 01200 is the most likely connection point, given the proximity to
planned development.
Stormwater Service
There are existing stormwater facilities on TL 00500 (18030340) and TL 01200, located
approximately 170 feet from the eastern edge of TL 00700. Another 24-inch diameter stormwater
trunk line is located in the Newman Street right-of-way approximately 170 feet from the eastern
edge of TL 00300.
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 9
Electrical Service
The Springfield Utility Board (SUB) provides electric services within the City of Springfield’s city
limits under the authority of the Springfield City Charter. SUB owns the properties directly to the
west of the subject site, and owner service is available.
Solid Waste Service
Sanipac provides solid waste management services in conjunction with Short Mountain Landfill,
which is administered by Lane County and has adequate capacity to serve the subject
development. Waste services are also provided by Lane Apex.
Emergency Services
Upon annexation approval, the subject property will be within the service response area of the
Eugene Springfield Fire. The subject site is currently within the Goshen Rural Fire Protection
District and will be withdrawn from this district upon annexation approval.
Police Services
Currently, the City of Springfield police provide police services to the areas within the city limits
adjacent to the subject property. Following annexation, the City of Springfield police will provide
police protection for the subject property.
Communication Services
Wire and wireless communication services are provided throughout Springfield, and the subject
property can generally receive services from private providers.
Education Services
Springfield School District 19 provides K-12 educational needs in Springfield. The subject property
is within the service area boundaries of Centennial Elementary School, Hamlin Middle School, and
Springfield High School.
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 10
4.0 SUBMITTAL REQUIREMENTS
Following are each of the procedural and informational requirements necessary for the submittal of
an Annexation application. Findings of compliance with applicable policies and approval criteria are
provided in Section 5. Approval Criteria.
4.1 Annexation Submittal Requirements
.1 Application Fee [SDC 5.7-125(B)(15)]
Refer to the Development Code Fee Schedule for the appropriate fee
calculation formula. Fees are based on the area of land being annexed.
Copies of the fee schedule are available at the Development Services
Department. Fees are payable to the City of Springfield.
The required filing fee is included with the pre-submittal. The Annexation fee will be provided with
the initial submittal.
.2 Petition/Petition Signature Sheet [SDC 5.7-125(B)(2)]:
To initiate an annexation by consent from property owners as explained below,
complete the attached Petition Signature Sheet (refer to Form 1). Photocopies
may be submitted at Pre-Submittal, with original copies at the time of
application submittal.
Consent by Property Owners [ORS 222.170(1)]:
If the proposal is to be initiated by the owners of at least one-half of the land
area, land value, and land ownership, complete Form 2. To give consent for a
particular piece of property, persons who own an interest in the property, or
who are purchasers of property on a contract sale that is recorded with the
county, must sign the annexation petition. Generally, this means that both
husband and wife should sign. In the case of a corporation or business, the
person who is authorized to sign legal documents for the firm may sign the
annexation petition. Please provide evidence of such authorization. To ensure
that the necessary signatures are obtained, please complete the attached
worksheet (Form 2).
The signed Petition Signature Sheet (Form 1) and the updated Ownership Worksheet (Form 2) are
included as Exhibits A and B.
.3 Certification of Ownership [SDC 5.7-125(B)(5)]:
After completing the attached Petition Signature Sheet (Form 1), have the Lane
County Department of Assessment and Taxation certify the ownerships within
the proposed annexation area. Photocopies may be submitted at Pre-
Submittal, with original copies at the time of application submittal.
The County’s Certification of Ownership is provided on the Petition Signature Sheet (Form 1),
included as Exhibit A.
.4 Ownership Worksheet:
Information on the Petition Signature Sheet can also be found on Form 2,
Owners and Electors Worksheet. Photocopies may be submitted at Pre-
Submittal, with original copies at the time of application submittal.
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 11
The Ownership Worksheet is included as Exhibit B.
.5 Supplemental Information Form [SDC 5.7-125(B)(1) and (11)]:
Form 3 (attached) provides additional information for the proposed annexation
that is not requested on the Annexation Application Type IV form, such as
special districts that currently provide services to the proposed annexation
area. Photocopies may be submitted at Pre-Submittal, with original copies at
the time of application submittal.
The Supplemental Information Form is included as Exhibit C.
.6 Copy of the Deed
The deed pertaining to the subject site is included as Exhibit D.
.7 Preliminary Title Report
The preliminary Title Report is included as Exhibit E.
.8 Annexation (Legal) Description [SDC 5.7-125(B)(9)]:
A metes and bounds legal description of the territory to be annexed or
withdrawn must be submitted electronically in Microsoft Word or a compatible
software program. A legal description shall consist of a series of courses in
which the first course shall start at a point of beginning. Each course shall be
identified by bearings and distances and, when available, refer to deed lines,
deed corners and other monuments. A lot, block and subdivision description
may be substituted for the metes and bounds description if the area is platted.
The Oregon Department of Revenue has the authority to approve or
disapprove a legal description. A professionally stamped legal description
does not ensure Department of Revenue approval.
An electronic copy of the required legal description and hard copy are included as Exhibit F.
.9 Cadastral Map [SDC 5.7-125(B)(10)]:
Three (3) full-size paper copies and one (1) digital copy (in .pdf format) of the
Lane County Assessor’s tax map that shows the proposed annexation area in
relationship to the existing city limits. If Digital Copy (in.pdf format) is not
available, Nine (9) full-size paper copies and one (1) reduced size redline map
at 8 ½ x 11 are required. Paper copy maps must be printed to scale. On all
submitted maps the annexation area shall be outlined in redline with survey
courses and bearings labeled for cross-reference with the metes and bounds
legal description. If the annexation area extends across more than one tax
map, sufficient copies of each affected tax map must be provided. Please be
aware that annexation redline closures must avoid creating gaps or overlaps,
and may not necessarily correspond with the property legal description.
Cadastral maps can be obtained from the Lane County Assessment and
Taxation Office.
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 12
Three (3) print copies and one (1) digital copy (.pdf format) of the cadastral map are included as
Exhibit G in accordance with the requirements.
.10 ORS 222.173 Waiver Form [SDC 5.7-125(B)(8)]:
Complete the attached waiver (Form 4). The waiver should be signed by each
owner within the proposed annexation area.
The waiver is not applicable to this application.
.11 Public/Private Utility Plan [SDC 5.7-125(B)(12)]:
A plan describing how the proposed annexation area can be served by key
facilities and services must be provided with the Annexation Agreement.
Planning and Public Works staff will work with the applicant to complete the
Annexation Agreement.
The Public/Private Utility Plan will be provided with subsequent land use application approvals and
is not a requirement of this annexation.
.12 Written Narrative addressing approval criteria as specified below. All
annexation requests must be accompanied with a narrative providing an
explanation and justification of response with the criteria stated in the
application (also stated below). [SDC 5.7-125(B)(13) and (14)]
A. The affected territory proposed to be annexed is within the City’s
portions of the urban growth boundary and is contiguous to the city
limits or separated from the City limits only by a public right–of-way or
a stream lake or other body of water;
B. The proposed annexation is consistent with applicable policies in the
Metro Plan and in any applicable refinement plan or Plan Districts;
C. The proposed annexation will result in a boundary in which the
minimum level of key urban facilities and services as defined in the
Metro Plan can be provided in an orderly efficient and timely manner;
and
D. Where applicable, fiscal impacts to the City have been mitigated
through a signed Annexation Agreement or other mechanism approved
by the City Council.
The preceding written narrative explains the proposal and includes all information relevant to
determining future action. Findings of compliance with the applicable criteria are provided in
Section 5.1 Annexation Approval Criteria.
.13 Three (3) copies of the previously required information with all plans and
attachments folded to 81/2” by 11” and bound by rubber bands.
All copies of the previously required information are folded to 8.5“ by 11” and are bound by rubber
bands.
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 13
5.0 APPROVAL CRITERIA
Findings of compliance establishing the consistency of this request with applicable approval criteria
are provided in Section 5.1.
5.1 Annexation Approval Criteria (SDC 5.7-140)
The request is subject to annexation approval in accordance with SDC 5.7-140 Annexation
Approval Criteria. The Applicant acknowledges the need to demonstrate the timing,
appropriateness, legality, and availability of services, and the following narrative accompanying the
Annexation Application Form provides such demonstration.
(A) The affected territory proposed to be annexed is within the City’s urban growth
boundary; and is
(a) Contiguous to the city limits; or
(b) Separated from the City only by a public right-of-way or a stream, lake or
other body of water.
The subject property is located outside the Eugene-Springfield Metropolitan Area General Plan
(Metro Plan) Boundary and within Springfield’s urban growth boundary (UGB). As shown on
Exhibits H (Vicinity Map) and G (Cadastral Map), the subject site is contiguous to the Springfield
city limits. The subject property consists of Map Number 18030233, Lot 05100; Map Number
18030340, Lot 00300; and Map Number 18030340, Lot 00700. The subject property is owned by
EWEB.
As noted previously and shown on Exhibit H Vicinity Map, Springfield’s city limits boundary is
contiguous with the western boundary of TL 05100 and the eastern boundary of TL 00700. TL
00300 is adjacent to TL 00700 and will be contiguous with city limits upon annexation of TL 00700.
Accordingly, this criterion is satisfied.
(B) The proposed annexation is consistent with applicable policies in the Metro
Plan and in any applicable refinement plans or Plan Districts;
The subject property is within the boundaries of the Metro Plan, Springfield Comprehensive Plan,
and Glenwood Refinement Plan. The following findings establish consistency with applicable
policies in these documents.
Metro Plan
The Metro Plan establishes a broad regional framework for Eugene, Springfield, and Land County
to coordinate comprehensive planning with the Eugene-Springfield Metropolitan Planning Area.
The Metro Plan was intended to designate a sufficient amount of urbanizable land to accommodate
the need for further urban expansion, taking into account the growth policy of the area and to
identify the major public facilities required to meet the land use needs designated within the
planning area. The Springfield Comprehensive Plan elements, including the Urbanization Element,
explicitly supplant the relevant portions of the Metro Plan and is the prevailing policy document.
A determination of consistency with the Metro Plan relates to the proposed use (water intake and
treatment facilities), the process by which the use is reviewed within the Metro Plan’s regulatory
EWEB
Glenwood Second Source
Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 14
framework (annexation), and the Metro Plan’s development objectives and outcomes (e.g.,
annexation and its relationship to urban form).
Page II-G-I of the Metro Plan states:
“… statements in this section that prescribe specific courses of action regarding the
community’s future should be regarded as policies.”
According to the Metro Plan Diagram (Policy Framework G), the Parks and Open Space zoning
designation applies to the subject property. The Plan identifies parks and open space designated
land as (p. II-G-9):
“…available for auxiliary uses, such as streets, elementary and junior high schools,
neighborhood parks, other public facilities, neighborhood commercial services, and
churches not actually shown on the Metro Plan Diagram. Such auxiliary uses shall be
allowed within residential designations if compatible with refinement plans, zoning
ordinances, and other local controls for allowed uses in residential neighborhoods.”
Parks and Open Space designated land is available for public facilities uses, and the property is
planned to be developed as a public facility, a water intake and treatment facility, following
annexation and other required approvals, consistent with this framework.
Growth Management Policies
Chapter II of the Metro Plan contains Subsections A through G. Pages II-C-1 through II-C-8 of the
Metro Plan establish the Growth Management Goals, Findings, and Policies within Chapter II,
Subsection C. The remaining subsections do not directly apply to the request. However,
Subsections A and B, Fundamental Principles and Metropolitan Goals, respectively, establish the
framework for the subsections that follow, including Subsection C. Of the policies contained in
Subsection C, nine policies (presented below in italics) are potentially relevant to the request and
are presented in associated topics rather than in the order listed in the Metro Plan:
Policy C.1: The UGB and sequential development shall continue to be implemented as an
essential means to achieve compact urban growth. The provision of all urban services shall
be concentrated inside the UGB.
Policy C.8: Land within the UGB may be converted from urbanizable to urban only through
annexation to a city when it is found that:
a. A minimum level of key urban facilities and services can be provided to the area in
an orderly and efficient manner.
b. There will be a logical area and time within which to deliver urban services and
facilities. Conversion of urbanizable land to urban shall also be consistent with the
Metro Plan.
Policy C.10: Annexation to a city through normal processes shall continue to be the highest
priority.
Policy C.16: Ultimately, land within the UGB shall be annexed to a city and provided with
the required minimum level of urban facilities and services. While the time frame for
EWEB
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Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 15
annexation may vary, annexation should occur as land transitions from urbanizable to
urban.
Policy C.17: Eugene and Springfield and their respective utility branches, Eugene Water &
Electric Board (EWEB) and Springfield Utility Board (SUB), shall be the water and electrical
service providers within the UGB.
Policy C.21: When unincorporated territory within the UGB is provided with any new urban
service, that service shall be provided by the following method (in priority order).
a. Annexation to a city;
b. Contractual annexation agreements with a city;
c. Annexation to an existing district (under conditions described previously in Policy
#20); or
d. Creation of a new service district (under conditions described previously in Policy
#15).
As demonstrated herein, the request is for annexation approval in accordance with the adopted
Springfield Comprehensive Plan and the Springfield Development Code. Approval of subsequent
land use applications will be required prior to future development.
The Metro Plan’s General Finding (1) on page I-8 states:
“Orderly metropolitan growth cannot be accomplished without coordination of public
investments. Such coordination can be enhanced through use of the ‘Public Facilities and
Services Plan’ and scheduling of priorities.”
Oregon Statewide Planning Goal 14, Growth Management, sets forth the provision to use urban,
urbanizable, and rural land in an efficient manner. The Metro Plan also stipulates that future
development “…encourage orderly and efficient conversion of land from rural to urban uses in
response to urban needs, taking into account metropolitan and statewide goals.” In so doing, the
Metro Plan demonstrates the request’s consistency with said provisions; the subject site’s location
satisfies the following statement on page II-C-1 of the Plan:
“To effectively control the potential for urban sprawl and scattered urbanization, compact
growth and the urban growth boundary (UGB) are, and will remain, the primary growth
management techniques for directing geographic patterns of urbanization in the community.
In general, this means the filling in of vacant and underutilized lands, as well as
redevelopment inside the UGB.”
The site is within Springfield’s UGB and is adjacent to Springfield’s city limits and existing industrial
development. The request is to annex the property in accordance with Policy C.21(a), thereby
enabling minimal extensions of existing sewer and electrical lines to the site.
The aforementioned service providers will continue to serve the site. EWEB requests annexation
into city limits pursuant to SDC 5.7-100 and in conformance with Metro Plan Policy C.10 and C.16.
In so doing, EWEB does not request annexation to other special service districts without first
requesting to annex into Springfield city limits.
1. Beneficial results of compact urban growth include:
EWEB
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Cameron McCarthy PRE-SUBMITTAL 16
a. Use of most vacant leftover parcels where utilities assessed to abutting property
owners are already in place.
b. Protection of productive forest lands, agricultural lands, and open space from
premature urban development.
d. Decreased acreage of leapfrogged vacant land, thus resulting in more efficient and
less costly provision and use of utilities, roads, and public services such as fire
protection.
Pages II-E-1 through II-E-2 establish the need to allow for the orderly development of Urban and
Urbanizable Land. Page II-E-1 provides steps so that such development may occur:
“The actual annexation and rezoning of the land (with accompanying public hearing
processes, including Lane County Local Government Boundary Commission approval);”
and,
“Extension of public capital improvements (in accordance with programming and funding
availability).”
The request demonstrates conformance with all Metro Plan Factors specified in the Urban Growth
Boundary section in the Metro Plan’s Policy Framework G, Metro Plan Diagram (pages II-G-12
through II-G-14), through compliance with the above-stated Metro Plan Policies on pages 18
through 20, herein. The Factors and corresponding “results,” as stated on page II-G-12, explain the
intent of the UGB and the effects of this intent. Because the Factors and “results” of this section
address development for and within the entire UGB, the request’s conformance to the following
Factors is achieved by default:
• Factor G.1: “Demonstrated need to accommodate long-range urban population growth
requirements consistent with LCDC goals;”
• Factor G.2: “Need for housing, employment opportunities, and livability;”
• Factor G.3: “Orderly and economic provision for public facilities and services;”
• Factor G.4: “Maximum efficiency of land uses within and on the fringe of the existing
urban area;”
• Factor G.5: “Environmental, energy, economic, and social consequences;”
• Factor G.6: “Retention of agricultural land, as defined, with Class I being the highest
priority for retention and Class VI the lowest priority;” and
• Factor G.7: “Compatibility of the proposed urban uses with nearby agricultural activities.”
The subject property, located just outside Springfield city limits but within the UGB, is located in
accordance with additional considerations that balance community needs for Springfield’s residents
and public agencies alike.
Policy C.9: A full range of key urban facilities and services shall be provided to urban areas
according to demonstrated need and budgetary priorities.
As previously noted, the site is located within Springfield’s UGB. Accordingly, it is within an area
that is planned for expansion and redevelopment, as the UGB defines the extent of urban
development and service expansion over the planning period. Future development will require
minimal extension of services.
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Although applicable to governments, the Applicant assumes the cost of extending services to the
site for the planned project.
Policy C.22: Cities shall not extend water or wastewater service outside city limits to serve a
residence or business without first obtaining a valid annexation petition, a consent to annex
agreement, or when a health hazard annexation is required.
This policy is directed toward local governments. The Annexation Petition and Consent Forms are
enclosed with the application. Moreover, the request does not entail the future development of a
residence or business on the site but rather public utility infrastructure.
Of the Specific Elements in Chapter III of the Metro Plan, only the policies of the Public Facilities
and Services element apply to the request and/or to the larger purpose of the project. The following
findings address that element in the context of the planned project in its entirety, with the basic
assumption that annexation approval facilitates the project’s development.
Public Facilities and Services Element
The Metro Plan’s Public Facilities and Services Element (pages III-G-1 through III-G-15) provides
direction for public and private development regarding urban facilities and services. A functional
plan of the Metro Plan, the Public Facilities and Services Plan identifies specific utility infrastructure
projects to guide priorities for decision-making regarding improvement and/or expansion projects in
the Eugene-Springfield area. Most of the policies contained therein direct action toward Lane
County and the Cities of Eugene and Springfield. Annexation requests for properties within the City
of Springfield’s jurisdiction must demonstrate that public infrastructure can serve the site in an
orderly, efficient, and timely manner under SDC 5.7-140C. Accordingly, the conformance with the
Public Facilities and Services policies contained in the Metro Plan is provided under the findings for
SDC 5.7140C.
Springfield Comprehensive Plan
The unincorporated land within the Springfield UGB is urbanizable and is considered part of
Springfield’s land base for housing, employment, public facilities, and other uses. Urbanizable
lands exist in various areas of the Springfield UGB, including Glenwood and the subject property,
and are designated for a variety of land uses. The land use designation determines the applicable
zoning, both before and after annexation.
According to Table 1. Urbanizable Land Plan Designations & Application Zoning Districts, the
subject site is within the Urbanizable Frings Overlay District (UF-10) and the Glenwood Riverfront
Mixed-Use Plan District before annexation and will be within the Glenwood Employment Mixed-Use
Zoning District after annexation.
The Springfield Comprehensive Plan Urbanization Element retains the urbanization policy criteria
for approving annexations:
Springfield Comprehensive Plan Urbanization Element Policy 30: Unincorporated land within
the Springfield UGB may be developed with permitted uses at maximum density only upon
annexation to the City when it is found that key urban facilities and services can be provided
to the area to be annexed in an orderly and efficient manner. Provision of these services to
the area proposed for annexation is consistent with the timing and location for such
EWEB
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Cameron McCarthy PRE-SUBMITTAL 18
extension, where applicable, in the City’s infrastructure plans — such as the Public Facilities
and Services Plan; the Springfield Transportation System Plan; the City’s Capital
Improvement Program; and the urbanization goals, policies and implementation strategies of
this Element — or a logical time within which to deliver these services has been determined,
based upon demonstrated need and budgetary priorities.
Accordingly, conformance with Urbanization Element Policy 30 is provided under the findings for
SDC 5.7140C.
Policy statement UG-1 is relevant to the proposed annexation request:
Promote compact, orderly and efficient urban development by guiding future growth to
vacant sites and redevelopment areas within the established areas of the city and to
urbanize lands where future annexation and development may occur.
The subject site is vacant, identified as an employment mixed-use development area, and is within
an urbanization area. The proposed request is for annexation approval. Therefore, the proposal is
consistent with Policy statement UG-1. Of the implementation strategies, only one is relevant to the
proposal:
3. Any development taking place within the City’s urbanizable area shall be designed to the
development standards of the Springfield Development Code.
Following approval of Annexation, Site Plan Review and other associated site-specific land use
applications (i.e., Willamette Greenway Overlay District, Floodplain Development Overlay, and
Hillside Development Overlay District) are required for the project. Compliance with this strategy is
ensured through approval of required site-specific land use applications.
Glenwood Refinement Plan
The subject site is within Subarea D of the Glenwood Refinement Plan (GRP), adopted by the City
and Lane County as a neighborhood refinement to the Metro Plan in 2012. Subsequently, the
Glenwood Riverfront Mixed-Use Plan District was incorporated into the Springfield Development
Code as SDC 3.4-200. While the GRP and Code allow certain “low impact public utility facilities,”
there is no provision for “high impact public utility facilities” within the subject site’s Employment
Mixed Use zoning district. The proposed water treatment and filtration facility is considered a high-
impact public utility facility. The GRP text does not anticipate the size and type of water facilities
proposed by EWEB. Therefore, amendments to certain GRP text and to the table for allowed uses
in the SDC for the Glenwood Plan District are required for the planned project. The proposed plan
and code amendments are not required for annexation approval.
The GRP Urban Transition and Annexation chapter contains an objective and policies and
implementation strategies directed toward supporting opportunities for compact growth, an efficient
land use pattern, and a well-planned supporting street and infrastructure system. The following
object addressing annexation:
Provide orderly and efficient conversion of land from urbanizable to urban in the Glenwood
Riverfront through the annexation process based upon the availability of a minimum level of
key urban facilities and services.
This proposal fulfills the annexation process stated in the objective. The findings SDC 5.7-140C
demonstrate that a minimum level of key urban facilities and services are available to serve the
EWEB
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Annexation Application September 6, 2024
Cameron McCarthy PRE-SUBMITTAL 19
site.4 None of the other policies and implementation strategies in the GRP are applicable to the
proposal.
The preceding findings demonstrate that the proposal is consistent with applicable policies in the
Metro Plan, Springfield Comprehensive Plan, and Glenwood Refinement Plan. This criterion is
satisfied.
(C) The proposed annexation will result in a boundary in which the minimum level
of key urban facilities and services, as defined in the Metro Plan, can be
provided in an orderly, efficient and timely manner; and
The Metro Plan provides policy direction regarding requests for annexation approval. By way of
consistency with the Metro Plan and approval of land use applications and permits to fulfill the
EWEB’s vision for the subject property, the minimum level of key urban facilities and services can
be provided in an orderly and efficient manner within a logical timeframe.
Pages III-G-1 through III-G-15 of the Metro Plan set forth the Plan’s Public Facilities and Services
Element. As stated on page III-G-1, “[t]he policies in this element complement Metro Plan Chapter
II-A, Fundamental Principles, and Chapter II-C, Growth Management.” The request addresses
Chapter II-C, as the Applicant does not request to extend utility infrastructure outside the Springfield
UGB or Springfield city limits. Therefore, the request will allow Springfield and the entire
metropolitan area to develop a “timely, orderly, and efficient arrangement of public facilities and
services…” The following policies that do not specifically address governmental action are
potentially relevant to the subject request:
Policy G.1: Extend the minimum level and full range of key urban facilities and services in an
orderly and efficient manner consistent with the growth management policies in Chapter II-
C, relevant policies in this chapter, and other Metro Plan policies.
Policy G.2: Use the planned facilities maps of the Public Facilities and Services Plan to
guide the general location of water, wastewater, stormwater, and electrical projects in the
metropolitan area. Use local facility master plans, refinement plans, and ordinances as the
guide for detailed planning and project implementation.
Policy G.9: Eugene and Springfield and their respective utility branches, EWEB and SUB,
shall ultimately be the water service providers within the UGB.
The acknowledgment of pages III-G-1 through III-G-15 of the Metro Plan and page III-G-1, whereby
“[t]he policies in this element complement Metro Plan Chapter II-A, Fundamental Principles, and
Chapter II-C, Growth Management” demonstrates that all required development features will remain
within the UGB in order to allow Springfield to develop a “timely, orderly, and efficient arrangement
of public facilities and services…” as confirmed by the Existing Conditions Plan (Exhibit I). The
Applicant does not propose extension of water, sewer, or electrical service outside the UGB.
4 The Metro Plan defines the minimum level of key urban facilities and services as wastewater service, stormwater
service, transportation, solid waste management, water service; fire and emergency medical services, police protection;
citywide park and recreation programs; electric service; land use controls; communication facilities; and public schools
on a district-wide basis.
EWEB
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Cameron McCarthy PRE-SUBMITTAL 20
The Vicinity Map (Exhibit H) shows the subject parcel in the southwest corner of Springfield and
within the UGB. The proposed second source site is between McVay Highway and Interstate 5 (I-
5). The subject property is below the confluence of the Middle and Coast Forks of the Willamette
River in Glenwood. The property is accessed by a gravel road extending from McVay Highway to
the east and through the SUB property to the west.
The Metro Plan defines “minimum level of key urban facilities and services” as:
“Wastewater service, stormwater service, transportation, solid waste management, water
service, fire and emergency medical services, police protection, city-wide parks and
recreation programs, electric service, land use controls, communication facilities, and public
schools on a district-wide basis (in other words, not necessarily within walking distance of all
students served.”
The following utility infrastructure and urban services are in the vicinity of the site or currently serve
the site:
Transportation
Springfield’s 2035 Transportation System Plan (TSP) identifies two potential future roadway
projects in the vicinity of the subject property: R-20 and PB-18. R-20 addresses improvements on
McVay Highway/Franklin Boulevard from East 19th Avenue to I-5 and involves the construction of a
two- or three-lane cross-section with sidewalks, bicycle facilities, and transit facilities consistent with
the Main Street/McVay Highway Transit Feasibility study. PB-18 addresses the construction of a
new multiuse (pedestrian/bike) 12-foot-wide path from the Willamette River bridges to the UGB.
The Springfield Conceptual Local Street Map does not show proposed new streets in the vicinity of
the subject property. The annexation agreement between EWEB and the City resulting from this
application will address future transportation facilities.
Water Service
EWEB is planning the construction of a second drinking water intake and treatment plant d to
increase system resiliency and to better serve local public utility customers. The water treatment
plant will generate water for the subject development. Therefore, water service is not required for
the development or is a requirement of annexation approval.
Wastewater Service
There is an existing 8 to 12-inch wastewater main located TL 01200 (18030340), owned by the City
of Springfield, that is approximately 270 feet from the eastern edge of TL 00700. Another 8 to 12-
inch wastewater main is located in the Newman Street right-of-way that is approximately 150 feet
from the eastern edge of TL 00300. Connection to one or both facilities will require boring under
the Union Pacific Railroad right-of-way or utilizing an existing culvert crossing. The facility at TL
01200 is the most likely connection point given the proximity to planned development.
Stormwater Service
There are existing stormwater facilities on TL 00500 (18030340) and TL 01200 located
approximately 170 feet from the eastern edge of TL 00700. Another 24-inch diameter stormwater
trunk line is located in the Newman Street right-of-way approximately 170 feet from the eastern
edge of TL 00300
EWEB
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Cameron McCarthy PRE-SUBMITTAL 21
Electrical Service
The Springfield Utility Board (SUB) provides electric services within the City of Springfield’s city
limits under the authority of the Springfield City Charter. SUB owns the properties directly to the
west of the subject site and owner service is available.
Solid Waste Service
Sanipac provides solid waste management services in conjunction with Short Mountain Landfill,
which is administered by Lane County and has adequate capacity, to serve the subject
development.
Emergency Services
Upon annexation approval, the subject property will be within service response area of Eugene
Springfield Fire. The subject site is currently within the Goshen Rural Fire Protection District and
will be withdrawn from this district upon annexation approval.
Police Services
Currently, the City of Springfield police provide police services to the areas within the city limits
adjacent to the subject property. Following annexation, the City of Springfield police will provide
police protection for the subject property.
Communication Services
Wire and wireless communication services are provided throughout Springfield, and the subject
property can generally receive services from private providers.
Education Services
Springfield School District 19 provides K-12 educational needs in Springfield. The subject property
is within the service area boundaries of Centennial Elementary School, Hamlin Middle School, and
Springfield High School.
Based on the above findings, Criterion “C” is satisfied.
(D) Where applicable, fiscal impacts to the City have been mitigated through an
Annexation Agreement or other mechanism approved by the City Council.
(6212)
The City has the authority to require and specify mitigation through an Annexation Agreement or
other mechanism. If warranted under this criterion, the City can impose and condition an
Annexation Agreement or other mechanism in conjunction with approval of the Applicant’s request.
This provision notwithstanding, the enclosed findings and documentation submitted herewith
demonstrate that the Applicant assumes the full cost of infrastructure and extension of services
necessary to serve the site. Therefore, mitigation of the cost of providing infrastructure to the site
through an Annexation Agreement is not applicable to the request. Any future mitigation
requirements can be deferred and conditioned as part of subsequent land use approvals. The
above findings coupled with the City’s authority to mitigate for any fiscal impacts provide sufficient
demonstration that Criterion “D” is satisfied.
5.2 Conclusion
Based on available information, supporting materials, and findings in Section 5.1, the annexation
request is consistent with all applicable approval criteria, standards, and other provisions.
Revised 4/8/14 BJ 14 of 17
FORM 2
OWNERSHIP WORKSHEET
(This form is NOT the petition)
(Please include the name and address of ALL owners regardless of whether they
signed an annexation petition or not.
OWNERS
Property Designation
(Map/lot number)
Name of Owner
Acres
Assessed
Value
Imp.
Y / N
Signed
Yes
Signed
No
TOTALS:
TOTAL NUMBER OF OWNERS IN THE PROPOSAL
NUMBER OF OWNERS WHO SIGNED
PERCENTAGE OF OWNERS WHO SIGNED
TOTAL ACREAGE IN PROPOSAL
ACREAGE SIGNED FOR
PERCENTAGE OF ACREAGE SIGNED FOR
TOTAL VALUE IN THE PROPOSAL
VALUE CONSENTED FOR
PERCENTAGE OF VALUE CONSENTED FOR
18-03-02-33, 5100
18-03-03-40, 300
18-03-03-40, 700
Eugene Water & Electric Board
Eugene Water & Electric Board
Eugene Water & Electric Board
1
1
100
100
7.74
1.32
15.94
N
Y
N
25.00
25.00
25.00
$128,550
$128,550
100
Revised 4/8/14 BJ Page 15 of 17
FORM 3
SUPPLEMENTAL INFORMATION FORM
(Complete all the following questions and provide all the requested information. Attach
any responses that require additional space, restating the question or request for
information on additional sheets.)
Contact Person:
E-mail:
Supply the following information regarding the annexation area.
Estimated Population (at present):
Number of Existing Residential Units:
Other Uses:
Land Area: total acres
Existing Plan Designation(s):
Existing Zoning(s):
Existing Land Use(s):
Applicable Comprehensive Plan(s):
Applicable Refinement Plan(s):
Provide evidence that the annexation is consistent with the applicable
comprehensive plan(s) and any associated refinement plans.
Are there development plans associated with this proposed annexation?
Yes No
If yes, describe.
Is the proposed use or development allowed on the property under the current
plan designation and zoning?
Yes No
Please describe where the proposed annexation is contiguous to the city limits
(non-contiguous annexations cannot be approved under 5.7-140, Criteria).
Laura Farthing, P.E.
Laura.Farthing@EWEB.org
0
0
N/A
25.00
Employment M.U.
Parks and Open Space
Vacant, residential
Metro Plan
Glenwood Refinement Plan
05100 is contiguous to City Limits at the west property boundary. 00300 is separated from City Limitsat the north property boundary by right of way, is contiguous to 00700 at the south property boundary, and will be contiguous upon annexation of 00700. 00700 is contiguous to City Limits at the east property boundary.
See application narrative
Water Treatment Plant
Revised 4/8/14 BJ Page 16 of 17
Does this application include all contiguous property under the same ownership?
Yes No
If no, state the reasons why all property is not included:
Check the special districts and others that provide service to the annexation
area:
Glenwood Water District Rainbow Water and Fire District
Eugene School District Pleasant Hill School District
Springfield School District McKenzie Fire & Rescue
Pleasant Hill RFPD Willakenzie RFPD
EPUD SUB
Willamalane Parks and Rec District Other __________________
Names of persons to whom staff notes and notices should be sent, in addition to
applicant(s), such as an agent or legal representative.
(Name) (Name)
(Address) (Address)
(City) (Zip) (City) (Zip)
(Name) (Name)
(Address) (Address)
(City) (Zip) (City) (Zip)
Laura Farthing, P.E.
Colin McArthur
Eugene 97402
4200 Roosevelt Blvd.
Eugene 97401
160 E Broadway