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HomeMy WebLinkAboutCorrespondence APPLICANT 3/15/2007 14 PeaceHealth March 15, 2007 Zone Change Application Written Explanation of the Proposal Applicant: PeaceHealth Oregon Region 770 E. 11 th Avenue P.O. Box 1479 Eugene, Oregon 97440 Property Owners: Hyland Business Park, LLC (Tax ~ot 400) 1941-A Laura Street Springfield, OR 97477 Attn: Shaun Hyland (541) 726-8081 Andrew Head (Tax Lot 402) 1616 Ardendale Ln. Eugene, OR 97405 (541) 521-3403 Applicant's Representative: Philip Farrington, AICP Director, Land Use Planning & Development PeaceHealth Oregon Region 123 International Way' Springfield, Oregon 97477 (541) 686-3828 * Fax (541) 335-2595 pfarrington@peacehealth.org 1.0 Land Use Request PeaceHealth Oregon Region (the "Applicant") requests approval to change the zoning classification on the City's zoning map from Light Medium Industrial ("LMI") to Community Commercial ("CC") for approximately 5.24 acres identified as Tax Lots 400 and 402 on Assessor's Map No. 17-02-32-00. This same acreage on the site is being proposed for a concurrent amendment to the Metro Plan diagram (which automatically also amends the East Main Refinement Plan diagram) from LMI to CC, as allowed in Springfield Development Code ("SDC") 12.020 (J)(a)1. Date Received: Planner: DR 5//S'/67 (/1 r./M.?~ Zone Change Application PeaceHealth Oregon Region March 15. 2007 Page 2 The area subject to the proposed rezoning is mapped on Attachment A, and is referred to collectively in this application as the "subject properties" or "site." 2.0 Project Purpose The Applicant seeks to rezone (and through concurrent application, redesignate) the subject properties to CC so they may be developed for commercial uses (i.e., Tax Lot 400), including a possible future medical clinic which could serve residents in the growing east Springfield area, and to be allowed to continue long-standing commerCial operations (i.e., Tax Lot 402). Approval of this land use request would preserve employment and existing viable commercial operations on Tax Lot 402, and create stable family-wage employment opportunities on Tax Lot 400 - a vacant and underused industrial site. The proposal would also help beautify this portion of Main Street from its traditional industrial yard uses, and future development would provide a superior buffer for residential uses to the west than currently exists. As described in later sections of this narrative the proposal is consistent with East Main Refinement Plan (EMRP) and the Metro Plan as required by approval criteria in SDC 12.030. In particular, this request - when considered with the concurrently submitted Metro Plan diagram amendment (and automatic EMRP diagram amendment) - complies with EMRP Policy 2: "Apply site-specific Commerci!ll refinement plan designations to clearly define the limits of new commercial uses where there is not an existing, legally established, and beneficial mixing of uses." (pg. 12) The proposal to allow for a broader, more beneficial range of commercial and employment-generating uses on the subject properties. It would also improve the area and better distinguish and buffer adjacent residential and industrial business park uses. 3.0 Site Context The subject properties include a currently vacant, flat parcel (Tax Lot 400) and existing commercial development (Tax Lot 402) east of 44th Street along Main Street in east Springfield. The site is bordered on the south by Main Street, on the east by the Hyland Business Park, on the north by an open area south of the Weyerhaeuser mill site (Tax Lot 400) or an existing commercially zoned parcel (Tax Lot 402), and on the west by other small-scale commercial enterprises (e.g., a cabinet shop and karate school) fronting Main Street and residential homes along 44th Street west of Tax Lot 400. Commercial enterprises are located immediately south of the site across Main Street (e.g., Gray's Garden Center). While historically involved in agricultural uses, since around 1990 Tax Lot 400 was used as a storage and sales yard for landscape organics and forest by-products: The current property owners also used the site to store modular construction offices, tool trailers, construction equipment and concrete form plywood. Tax Lot 402 has had various commercial services on site since the 1950s. Zone Change Application PeaceHealth Oregon Region March 15, 2007 ' Page 3 The properties have no jurisdictional wetlands or inventoried GoalS natural or historic resources. The site is within the Springfield Urban Growth Boundary, and both parcels were annexed into the City of Springfield in 1960. The EMRP diagram (adopted in 1988) currently designates the subject property for industrial uses. The abutting property to the east is designated Light/Medium Industrial in the EMRP diagram and zoned LMI. The areas immediately to the west and south of the site fronting Main Street are identified as being within Mixed-Use Area #2 in the EMRP, and are all zoned Community Commercial. Property to the west of Tax Lot 400 along 44th Streetis zoned and designated Medium Density Residential. 4.0 Applicable Approval Criteria Zone change proposals are evaluated according to the criteria of approval contained within SDC 12.030 (3), which requires: 1. Consistency with applicable Metro Plan policies and the Plan Diagram; 2. Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development Plans and functional plans; and 3. That the property is provided with adequate public facilities, services and transportation networks to support the use, or will be provided. concurrent with property development. Legislative zone map amendments are also required to show that they meet the criteria for Plan amendments outlined in SDC Article 7, and that it complies with the state Transportation Planning Rule (OAR 660-012-0060), where applicable. ' Findings demonstrating consistency with the approval criteria are outlined below. 4.1 Consistency with Metro Plan Text and Diagram Consistent with SDC 12.030 (3)(a), this narrative only addresses those policies that apply' to the proposal, and does not discuss those portions of the Metro Plan that: (I) apply only to rural or other lands outside of the urban growth boundary, (2) apply to land uses other than the current or proposed designations for the site and will not be affected by the proposed Plan diagram and text amendments, or (3) clearly apply only to specific development applications (e.g., site plan review submittals or subdivisions). In many instances the goals, policies and implementation measures apply to specific development proposals that will be addressed through compliance with applicable City regulations during site plan review of a given future development proposal. Except for the Growth Management Goals, which are addressed below, each of the Metro Plan policies are addressed in the order in which they appear in the Plan Element section of the Metro Plan. Zone Change' Application PeaceHealth Oregon Region M,roh 15, 2007 Page 4 4.1.1 Metro Plan Elements 1. Growth Management Policies 1. The urban growth boundary and sequential development shall continue to be implemented as an essential means to achieve compact urban growth. Provision of all urban services shall be concentrated inside the urban growth boundary. The proposal satisfies this policy because the subject property is inside the UGB and city limits and as such, encourages compact urban growth. Also, urban services are available at sufficient levels to accommodate the existing ,and future infill development resulting approval of from this application. The City's site plan review processes ensure that the appropriate level of services' is available to serve future development. 2. Residential Land Use and Housing Element Policies A.ll Generally locate higher density residential development near employment or commercial services, in proximity to major transportation systems or within transportation-efficient nodes. The proposed redesignation does not affect the inventory or availability of residentially designated or zoned land, including the single-family residential area abutting Tax Lot 400 that is zoned and designated for Medium Density Residential, or higher density residential developments located east of the site along Main Street. However, approval of the requested redesignation to Community Commercial would allow for residential areas proximate to the subject area to have close and efficient access to existing commercial services on Tax Lot 402 and to future medical facilities proposed for Tax Lot 400, consistent with the above policy. The areas proposed for redesignation , offer existing and future employment opportunities and'provide commercial services along a major transportation system that can support the needs of nearby residential development. A.22 Expand opportunities for a mix of uses in newly developing areas and existing neighborhoods through local zoning and.development regulations. The proposed map amendment and zone change will allow for existing commercial uses on Tax Lot 402 to continue to serve existing neighborhoods in the mid- and east- Springfield area, and for future clinical facilities to be developed to serve this rapidly growing area of the community. Approving the request would expand commercial opportunities to serve these neighborhoods consistent with the above policy. Zone Change Application PeaceHealthOregon Region March 15, 2007 Page 5 3. Economic Element Policies B.] Demonstrate a positive interest in existing and new industries, especially those providing above-above wage and salary levels, and increased variety of job opportunities, arise in the standard of living, and utilization of our existing comparative advantage in the level of education and skill of the resident laborforce. The proposal is consistent with this policy because it will allow medical clinic uses to be developed to serve growing areas in east and south Springfield. As is observed in the Springfield Commercial Lands Study (pp. 27, 29), employment in health services is growing and approving the requested redesignation and zone change will enable increased job opportunities with higher than average wages thereby raising the standard ofliving and meeting the needs of Springfield citizens, consistent with the above policy. B.2 Encourage economic development which utilizes local and imported capital, entrepreneurial skills, and the resident labor force. The construction of and the use of commercial and medical uses will utilize both local and imported capital 'and will employ the local labor force in a variety of skilled, semi-skilled, and unskilled positions, consistent with this policy. B.6 Increase the amount of undeveloped land zoned for light industry and commercial uses correlating the effective supply in terms of suitability and availability with the projections of demand. The proposal will add approximately 5.24 acres of Community Commercial land, consistent with recommendations to increase the commercial lands inventory made in the Springfield Commercial Lands Study. The SCLS and acknowledged metropolitan Industrial Lands Study concluded that there is a deficit of needed commercial land, and a surplus of industrially zoned and designated land. Approval of the requested redesignation and zone change will not cause the inventory of needed industrial land to go into a deficit, but in fact would be consistent with the above policy. The.proposal correhites the need, suitability, and availability of the subject site for commercial uses with the need for such uses as demonstrated in the adopted SCLS. B.ll Encourage economic activities which strengthen the metropolitan area's position as a regional distribution, trade, health, and service center. The amendment will facilitate the development of medical uses that will serve the needs of the growing residential areas in east, south and southeast Springfield, and strengthen the metropolitan area's position as a premier locale for healthcare services, consistent with this policy objective. Zone Change Application PeaceHealth Oregon Region March 15. 2007 6. Environmental Design Element Policies E.1 In order to promote the greatest possible degree of diversity, a broad variety of commercial, residential, and recreational land uses shall be encouraged when consistent with other planning policies. Page 6 Approval of the proposed map amendments will add just over 5 acres into the City's inventory of commercially designated and zoned land, thereby allowing for a variety of needed commercial uses to occur on the subject property. Long-standing existing commercial services on Tax Lot 402 would be allowed to continue without the specter of being' considered non-conforming uses, and Tax Lot 400 could be developed with medical services that will serve the needs of the growing residential areas east and south of the subject site, consistent with the above policy. . 7. Transportation Element Land Use Policies F.3 Provide for transit-supportive land use patterns imd development, including higher intensity, transit-oriented development along major transit corridors and near transit stations; medium- and high-density residential development within one-quarter mile of transit stations, major transit corridors, employment centers, and downtown areas; and development and redevelopment in designated areas that are or could be well served by existing or planned transit The proposal will enable land use patterns and development consistent with the ,above policy. Approval of the requested zone change (and concurrent redesignation) will allow for higher intensity development along Main Street, a major transit corridor. An existing LTD stop is located on the frontage of Tax Lot 400 (see photo, pg. 2, Appendix A ofthe TIA), and will provide convenient access to existing and projected employment on the subject site, as well as access for patients to future out-patient medical facilities projected on Tax Lot 400. Transportation System Improvements: Roadways Policies F.15 Motor vehicle level of service policy: a. Use motor vehicle level of service standards to maintain acceptable and reliable performance on the roadway system. These standards shall be usedfor: (1) IdentifYing capacity deficiencies on the roadway system. (2) Evaluating the impacts on roadways of amendments to transportation plans, acknowledged comprehensive plans and Zone Change Application PeaceHeaJth Oregon Region March 15, 2007 Page 7 land-use regulations, pursuant to the TPR (OAR 660-012- 0060). (3) Evaluating development applications for consistency with the land-use regulations of the applicable local government ,jurisdiction. ' b. Acceptable and. reliable performance is defined by the following levels of service under peak hour traffic conditions: LOS E within Eugene's Central Area Transportation Study-(CATS) area, and LOS D elsewhere. . c. Performance standards from the OHP shall be applied on state facilities in the Eugene-Springjield metropolitan area. In some cases, the level afservice may be substandard. The local government jurisdiction may find that transportation system improvements to bring performance up to standard within the planning horizon may not be feasible, and safety will not be compromised, and broader community goals would be better served by allowing a substandard level of service. The limitation on the feasibility of a transportation system improvement may arise from severe constraints, including but not limited to environmental conditions, lack of public agency financial resources, or land use constraint factors. It is not the , intent of TSI Raodway Policy #2: Motor Vehicle Level of Service to require deferral of development in such cases. The intent is to defer motor vehicle capacity increasing transportation improvements until existing constraints can be overcome or develop an alternative mix of strategies (such as: land use measures, TDM, short-term safety impro~ements) to address the problem. Subsection a.(2) in the above policy requires an evaluation of the proposal pursuant to the state Transportation Planning Rule (TPR). The accompanying Traffic Impact Analysis provides the factual basis to determine that the proposed redesignation would not result in a "significant effect" as defined under the TPR (OAR 660-012-0060(1)). Specifically, the proposal does not change the functional classification of Main Street or any other Qearby roadway, nor does it change the standards for implementing the City's functional classification system of roadways, as identified in the Regional Transportation Plan. As demonstrated in the TIA, the proposal also does not: . Result in types or levels of traffic or access that are inconsistent with the functional classification of Main Street or any other nearby roadway; . Reduce performance of traffic on Main Street or other affected intersections to a level that is below acceptable established performance standards; or Zone Change Application PeaceHealth Oregon Region March 15, 2007 Page 8 . Make performance of existing facilities worse (i.e., below acceptable mobility standards) than would be the case other uses,permitted under existing designations or zomng. Additional TPR findings are further located in the TIA, see pp. 31-32. Because the proposal does not result in a "significant effect" as established by applicable OARs, no further TPR analysis is-required. .The request is therefore consistent with the above policy. 8. Public Facilities and Service Element , Policies G.1 Extend the minimum level and full range of key urba'n facilities and services in an orderly and efficient manner consistent with the growth management policies in Chapter Il-B, relevant policies in this chapter and other Metro Plan policies. The subject property is located in Springfield's city limits UOE, All necessary infrastructure and key urban facilities/services are present to serve existing development (Tax Lot 402) or are available to serve future infill development on Tax Lot 400. Therefore, the proposal is consistent with the above policy. 9. Parks and Recreation Facilities Element Policies Policies in this element of the Metro Plan are not relevant to the requested zone change. 10. Historic Preservation Element Policies Policies in this element,of the Metro Plan are not relevant to the requested zone change. 11. Energy Element Policies Policies in this element of the Metro Plan are not relevant to the requested zone change. j Zone Change Application PeaceHealth Oregon Region March 15, 2007 Page 9 4.2 Consistency with East Main Refinement Plan The following demonstrates how the proposal is consistent with applicable policies in the East Main Refinement Pllll1- (EMRP). 1. Mixed-Use Element Policy 2) Area #2 A) The following land uses are allowed under Community Commercial zoning: All Communitv Commercial uses subject to Article 18 of the Springfield Development Code. The proposal requests rezoning the subject properties from LMI to Community Commercial (and concurrently redesignating the properties to CC), as the above policy and other EMRP policies allow. Approval of the request would allow long-standing existing commercial uses on Tax Lot 402 to continue as permitted under Article 18, and consistent with neighboring uses to the west and south, which are also zoned and designated for commercial uses. 2. Commercial Element Criteria for Commercial Refinement Plan Desif!nation 1. Generally, the Community Commercial refinement plan designation shall be applied under the following circumstances: A) where it is not an intrusion into well-maintained residential neighborhoods; The area proposed for rezoning does not intrude.into the existing residential area west of the subject site along 44th Street, and is therefore consistent with the above criterion. B) where it does not increase conflict between Low Density Residential and Commercial; Although the abutting residential area is zoned Medium Density Residential, it is developed in low-density residential uses. Approval of the proposed rezoning of the subject sites would actually result in a decrease of conflicts between abutting residential imd non-residential land uses by allowing future infill development on Tax Lot 400, and through the site plan review process establishing improved landscaped buffers and a use more compatible than the industrial uses that historically abutting this residential area. Zone Change Application PeaceHealth Oregon Region Merch 1 'l. 7007 , C) where criteria for designating Medium Density Residential land does not apply; Criteria for designating MDR land does not apply to the subject site. D) where legally created commercial uses exist; Tax Lot 402 lias existing, long-standing commercial uses that were legally created prior to development ofthe Metro Plan or EMRP. Tax Lot 400 has had a variety of commercial services located on-site over the years. E) where adequate customer and service access to an arterial street can be provided; ... and The subject site has adequate legal access onto Main Street, which is classified as an arterial street. F) where designated Commercial on the Metro Plan Diagram. Approval of the concurrently submitted Plan diagram amendment application would result in a Commercial designation on the Metro Plan diagram, which would also automatically modify the designation on the EMRP diagram. Policy 2) Apply site-specific Commercial refinement plan designations to clearly'define the limits of new commercial uses where there is not an existing, legally established, and beneficial mixing of uses. Page 10 Approval of the concurrently requested redesignation would apply Commercial plan designations to the subject properties, allowing the existing, legally established commercial uses on Tax Lot 402 to continue. Itwould also enable commercial uses to be established on Tax Lot 400, thereby defining the limits of new commercial uses between the pre-existing commercial uses on Tax Lot 402 and others to the west, and the developed industrial business park to the east. Tax Lot 400 does not have an existing or beneficial mix of uses, but has historically housed industrial yard-type operations. Therefore, approval of the proposal would define the limits of new commercial uses as called,for in the above policy, and also provide the ability to make superior buffering and other improvements associated with future development on Tax Lot 400 through the site plan review process. v 'Policy 3) Reduce the number of vehicular access points and require the rebuilding of curbs and installation of sidewalks and street trees along Main Street, through the Site Plan Review process and in public improvement projects. Zone Change Application PeaceHealth Oregon Region March 15, 2007 Page 11 The proposal would result in reducing the number of existing access points as required above. Through the Site Plan Review process, future development on Tax Lot 400 will have a single driveway access onto Main Street, eliminating one of the two existing curb cuts on this site. Sidewalks and street trees are'already located along its Main Street frontage, consistent with the above policy. Policy 4) Provide buffering between commercial and residential uses through Article 31 of the Springfield Development Code, Site Plan Review process. Existing residential uses along the east side of 44th Street have had no real buffer from pre-existing industrial uses on Tax Lot 400. Approval of the proposal would allow for attractive infill development of future medical facilities that would provide (through the SPR process) improved landscaped buffers between the future use and existing residential area to the west - as required by Code, and consistent with the above policy. 3. Indus.trial Element Policy 1) The City shall encourage efforts of various agencies to attract new and retain existing jobs and businesses. lmolementation The City shall maintain a current inventory of vacant commercial and industrial land and structures within the East Main area. Consistent with the above policy, approval of the requested zone change and redesignation will enable existing, long-standing jobs and businesses on Tax Lot 402 to remain as legal, conforming land uses, and allow future development of new employment on Tax Lot 400 with higher than average wages and employment densities than the current designation and zoning allows. Zone Change Application PeaceHealth Oregon Region March 15,2007 Page 12 4.3 Provision of Adequate Public Facilities The subject properties were annexed into the Springfield corporate limits in 1960, and therefore are provided with City police, fire, and other government services. Other basic infrastructure is in place to serve existing development on Tax Lot 402 and any future development on Tax Lot 400. Specifically, sanitary sewer, stormwater, and water lines are all located along the site's Main Street frontage'- all of which are adequate to serve the needs of existing and/or future development on the subject site. Transportation services are also readily ayailable to serve existing and future development, as Main Street is fully improved with curb, gutter, etc. As indicated in the Traffic Impact Analysis accompanying the concurrently submitted zone change and Metro Plan diagram amendment, approval of the proposal would not result in a "significant effect" to the transportation system, and therefore is consistent with the state Transportation Planning Rule. The TIA further demonstrates that existing and future development under the proposed zone change has safe and efficient access and circulation for vehicles, and also will benefit from the sidewalks, bike lanes, and transit service existing on Main Street. Therefore, the proposed zone change complies with the requirement for having adequate public facilities and services to serve development, as established in SDC 12.030 (3). 4.4 Consistency with Approval Criteria in SDC Article 7 The proposed zone change is submitted concurrently with an application to amend the Metro Plan diagram. The following findings are contained in the Plan diagram amendment application, and also demonstrate that this proposal complies with Metro Plan policies as required in SDC 7.070 (3) and with zone change approval criteria in SDC 12.030. Both the findings below relative to Goal 12 and those above pursuant to Metro Plan Transportation Element policies address consistency with the state TPR, as called for in SDC 12.030. It should also be noted that approval of a Metro Plan diagram amendment also correspondingly changes the applicable refip.ement plan (East Main Refinement Plan) diagram, as established in SDC 7.110 (4). Goall - Citizen Involvement Goal I addresses the need to develop a citizen involvement program to ensure citizen involvement in all phases of the land use planning process. The Planning Commission and the city Council will hold public hearings and accept testimony on the proposal. Through the procedures established by the city, citizens will receive notice of hearings in 'generally published local papers and have the opportunity to be heard regarding the proposed diagram amendment and zone change. Notice of the public heanngs will also be given in accordance with SDC requirements to nearby property owners, interested parties requesting notice, and any established neighborhood organization. Since the process complies with the City's citizen involvement program and citizens have Zone Change Application PeaceHealth Oregon Region March 15, 2007 Page 13 opportunities to be involved in the procedure, the proposed plan 'and zone map amendments are consistent with Goal I. Goal 2 - Land Use Planning Goal 2 requires that local comprehensive plans be consistent with the Goals, that local comprehensive plans be intemally consistent, and that implementing ordinances be consistent with acknowledged comprehensive plans. Goal 2 also requires that land use decisions be coordinated with affected jurisdictions and that they be supported by an adequate factual base. As required in SDC 7.050, the City is required to give referral notice of the proposed Type II Metro Plan diagram amendment to the City of Eugene and Lane County so they may deteimine if there are grounds to participate as parties to the hearing. The City also sends the statutorily required notice of the initial public hearing 45 days in advance to the state Department of Land Conservation and Development, ensuring that they are given opportunity for comment and review conforrllity to applicable statewide planning goals. ,The Metro Plan and'the SDC, as well as the Statewide Planning Goals and applicable statutes, provide policies and criteria for the evaluation of comprehensive plan amendment and zone change proposals. Compliance with these measures assures an adequate factual base for approval of the proposals. As discussed elsewhere in this document, the Plan diagram and zone map amendments are consistent with the Metro Plan and the Goals. Consequently, by demonstrating such compliance, the proposal satisfies the consistency element of Goal 2. Goal 3 - Agricultural Lands This goal is inapplicable because as provided in OAR 660-15-000(3), Goal 3 applies only to rural agricultural lands. The subject properties are located within an acknowledged urban growth boundary, are inside Springfield's corporate limits, and have not been in agricultural use for decades. Goal 4 - Forest Lands Goal 4 does not apply within urban growth boundaries, per OAR 660-06-0020, and the areas affected by the Plan amendments are inside Springfield'sacknowledged UGB. Goal 5 - Natural Resources. GoalS requires local governments to protect a variety of open space, scenic, historic, and natural resource values. GoalS and its implementing rule, OAR Ch. 660, Division 16, require planning jurisdictions, at acknowledgment and as a part of periodic review, to (I) identify such resources; (2) determine their quality, quantity, and location; (3) identify conflicting uses; Zone Change Application PeaceHealth Oregon Regi9n March 15, 2007 Page 14 (4) examine the economic, social, environmental, and energy (ESEE) consequences that could result from allowing, , limiting, or prohibiting the conflicting uses; and (5) develop programs to resolve the conflicts. The subject properties are not on Springfield's acknowledged Metro Plan Goal 5 inventory. No threatened or endangered species have been inventoried on the site, and no archeological or significant historical inventoried resources are located on the site. The National Wetland Inventory and Springfield Local Wetland Inventory maps have been consulted and there are no jurisdictional wetlands located on the site. Therefore, the proposal does not alter the City's compliance with GoalS. Goal 6 - Air, Water, and Land Resources Quality The purpose of Goal 6 is to maintain and improve the quality of the air, water and land resources of the state; Generally, Goal 6 requires that development comply with applicable state and federal air and water quality standards. In the context of the proposed Metro Plan diagram amendment and zone change, Goal 6 requires that the applicant demonstrate that it is reasonable to expect that applicable state and federal environmental quality standards can be met. Though Tax Lot 400 has been used for low-value storage and quasi-industrial uses, the site is not listed on any state or 10ca1 environmental clean-up list. A Phase I environmental assessment on the subject property was conducted and recommended additional analysis. Upon recommendations through the Phase 2 environmental assessment a nominal quantity of soil (less than 10 cy) impacted by earlierlhistoric use was removed from the site and properly disposed. Given the nominal impact generated by historic uses on the site, it is reasonable to conclude that future development on the site will be able to demonstrate compliance with City standards for water quality protection through the site plan review process, thereby complying with applicable state. and federal environmental quality standards. ". Goal 7 - Areas Subject to Natural Hazards Goal 7 requires that development subject to damage from natural hazards and disasters be planned and/or constructed with appropriate safeguards and mitigation. The goal also requires that plans be based on an inventory of known areas of natural disaster and hazards, such as areas prone to landslides, flooding, etc. . The site is flat and not subject to landslide hazards, and is located well outside of any established FEMA flood hazard area. Therefore, approval of the proposal will not alter the City's acknowledged compliance with Goal 7 through its adopted plans, codes and procedures. Zone Change Application PeaceHealth Oregon Region March 15,2007 . Page 15 GoalS - Recreational Needs Goal.8 requires local governments to plan and provide for the siting of necessary recreational facilities to "satisfy the recreational needs of the citizens of the state and visitors," arid where al'l'Wl',;ate, provide for the siting of recreational facilities including destination resorts. The subj ect site is not included in an inventory of recreational sites, and the proposal will not have an impact on the community's recreational facilities or needs; therefore, the proposal does not implicate Goal 8. Goal 9 - Economic Development Goal 9 requires the city to provide adequate opportunities for a variety of economic activities vital to the health, welfare, and prosperity of the citizens. The proposed amendment to the Metro Plan diagram will increase the city's capacity for economic development by adding 5 acres of CC designated/zoned land in place of the existing industrial designation and zoning. Permitting the construction of future clinic facilities on Tax Lot 400 and allowing long-standing commercial uses on Tax Lot 402 to continue and become conforming uses consistent with commercial zoning through approval of the proposed Plan diagram amendment and zone change is consistent with numerous policies in the City's adopted plan for compliance with Goal 9, the Springfield Commercial Lands Study (SCLS). Specifically, the following SCLS policies are applicable to the proposal: Policy I-A: "Maintain a mixed supply oflarge and small commercial sites through strategies such as rezoning or annexation to serve Springfield's futui-e population." The proposal fulfills this policy objective by rezoning (and redesignating) land from industrial to commercial use, for two tax lots of varying sizes and commercial uses, thereby maintaining existing employment and commercial use in Tax Lot 402 and providing the ability for growth in medical sector employment by allowing future clinic uses on Tax Lot 400. Policy l-C: "Maintain at least a five-year supply of commercial land within the Urban Growth Boundary (UGB) that is currently served or readily serviceable with a full range of urban public facilities and services. " The SCLS (see Table 3-8, pg. 32) found there to be a deficit of 158 acres in the supply of commercial land over demand projected through the year 2015. The proposal would allow for redesignation and rezoning of five acres thereby reducing the deficit of commercial land. The subject site has a full range of urban public facilities and services available to support existing commercial development on Tax Lot 402, and future development on Tax Lot 400. The SCLS identifies (pg. 33) a need to support "employment in population-dependent sectors such as retail sales and health services" to meet Springfield's growing community. The SCLS also noted (pp. 27-29) state and local Zone Change Application PeaceHealth Oregon Region March 15, 2007 Page 16 trends in greater employment in retail trade and well-paying health services sectors. Approving the proposed redesignation and zone change would help meet Springfield's demonstrated need for employment and commercial services. . finding 3 in the SCLS (pg. 36) cited the acknowledged 1992 Industrial Land Study as demonstrating that "a surplus of industrial sites exists in the Metro Area." Therefore, the proposed redesignation (and corresponding rezoning) would not result in a deficit of needed industrially designated and zoned land, but it would help reduce the commercial lands deficit identified in the SCLS. Therefore, approving the proposal would be consistent with SLCS Implementation Strategy 3-A (J): "Evaluate inventories based on demonstrated need for the planning period. Initiate rezoning or redesignation of surplus land uses where more appropriate for commercial, consistent with the Metro Plan." The proposal in fact consistent with inventories for commercial and industrial lands adopted by the City <:;ouricil and acknowledged by DLCD as being consistent with Goal 9. Oregon Administrative Rules conceming'Goal 9 implementation (OAR 660-009- . 00 I 0(4)) call for amendments to land use designations "in excess of two acres within an existing urban growth boundary from an industrial land use designation to a non- industrial use designation" to have to address applicable planning requirements - such as consistency with the Metro Plan and other local plan policies (i.e., SCLS) or be consistent with an economic opportunities analysis. The City can find that the proposal complies with relevant local plan policies by converting one form or employment-generating land use to another, without negatively impacting the supply of buildable lands for either category of uses. The proposal enables continued use of the existing and long-standing commercial center to continue to operate and provide employment opportunities, while also allowing higher-value employment associated with future development on Tax Lot 400. These types of employment-generating uses are among those identified in OAR 660-009-0005(6) as eligible non-industrial employment activities that can justify approval of the proposed Plan diagram amendment without the need for an economic opportUnities analysis apart from the SCLS, which DLCD acknowledged as fulfilling the City's obligations under Goal 9. Because the requested redesignation and zone change implements SCLS policies and does not result in a deficiency of needed industrial lands, and is otherwise demonstrated to be consistent with relevant Metro Plan policies, approval of the proposal is consistent with the City's compliance with Goal 9 and applicable administrative rules regarding Goal 9 implementation. Goal 10 - Housing LCDC's Housing goal requires cities to maintain adequate supplies of buildable lands for needed housing, based on an acknowledged inventory of buildable lands. The proposal does not affect the City's inventory of residential lands. In fact, approval of the requested redesignation for Tax Lot 400 would enable redevelopment of an industrial site abutting existing residential development. Through Zone Change Application PeaceHealth Oregon Region March 15 2007 Page 17 the site plan review process, future development on that property can provide a superior buffer and a higher use that will benefit the adjoining residential properties. Because the proposal does' not involve directly any change in the amount of residentially designated or zoned land, it does not affect Springfield's continued compliance with Goal 10. Goalll - Public Facilities and Services This goal requires the provision of a timely, orderly'and efficient arrangement of public facilities and services. The subject property is located within the Springfield UGB and city limits, and is already designated for urban levels of use. The proposed amendment to the Plan map designations' and zone map classifications from LMI to CC will not affect the ability to provide needed services since all the required urban services are available to support existing or future commercial uses on the subject site. Goal 12 - Transportation Goal 12 requires local governments to provide and encourage a safe, convenient and economical transportation system. The proposed map amendments and zone change involve approximately 5.24 acres of property, though existing and long-standing commercial uses occur on Tax Lot 402 such that approval of the proposal will not result in any changes to the type or intensity of uses on the site, and will not increase the trip generation for that fully developed parcel. As the attached Traffic Impact Analysis (TlA) demonstrates, future development of medical office facilities on TL 400 will not degrade mobility standards below acceptable levels and allow for adequate queuing lengths at applicable intersections. Therefore, the proposal will not have a "significant effect" on , transportation facilities as defined in the Transportation Planning Rule (OAR 660-012- 060). Existing development at Tax Lot 402 is not affected by the proposal, and is assumed to retain its current access points off Main Street. It is further assumed that future development on Tax Lot 400 will result in some access changes as will be reviewed through the site plan review process, thereby consolidating two existing curb cuts located on Tax Lot 400 into a single access point located approximately in the center of the parcel. The TlA demonstrates that these access points will not result in any degradation of mobility standards below acceptable levels, and that safe and efficient circulation can be realized through approval of the requested land use redesignation and zone change. Furthermore, reducing the number of access points for future development on Tax Lot 400 is consistent with policy objectives found in East Main Refinement Plan (EMRP) Access, Circulation & Parking Element policy 1 B (pg; 17) and Commercial Element policy 3 (pg. 12). Because the proposal, as'demonstrated in the TlA, is consistent with the. requirements of the TPR and with applicable policies in the EMRP, it is consistent with Goal 12 and applicable local implementing policies. Zone Change Application PeaceHealth Oregon Region M:arch 15, 2007 Page 18 Goal 13 - Energy Conservation The Energy goal is a general planning goal and provides limited guidance for site-specific map amendments. The proposal has no direct impact on energy conservation, though it would in fact will promote greater energy efficiency by enabling needed clinical services available to growing residential areas in east Springfield. Therefore, the proposal is consistent with, and does not alter the City's continued compliance with Goal 13. Goal 14 - Urbanization Goal 14 requires local jurisdictions to provide for an "orderly and efficient transition from rural to urban land use." The subject property is within the UGB and the city limits of Springfield, and within an existing urbanized area of the community. Therefore, Goal 14 is not applicable to this application. Goal 15 - Willamette River Greenway This goal is inapplicable because the subject property is not within the boundaries of the Willamette River Greenway. Goals 16-19 - Coastal Goals The coastal goals are not applicable to this application.