HomeMy WebLinkAboutOrdinance 5689 05/17/1993
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ORDINANCE NO. 5689
AN ORDINANCE AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL PLAN
DIAGRAM TO PROVIDE FOR EXPANSION OF FACILITIES AT THE EUGENE AIRPORT
ACCORDING TO THE ADOPTED EUGENE AIRPORT,MASTER PLAN;
AND ADOPTING A SEVERABILITY CLAUSE.
The City Council of the City of Springfield finds as follows:
1. The Cities of Springfield, Eugene and Lane County initiated an update
amendment to the Eugene-Springfield Metropoli tan Area General Plan (Metro Plan)
pertaining to the plan designation for 20 acres (;hf land adjacent to the Eugene
Airport (City of Eugene: Eugene Airport/Kokkeler Property).
2. I Adoption of this proposed amendment has been recommended by the
Springfield, Eugene and Lane County Planning Commissions following their joint
public hearing on March 16, 1993.
3. Notice of the public hearings 'before the Planning Commission and Ci ty
Council were published in a local newspaper of general circulation in conformance
with the provisions of the Springfield Development Code Section 14.030.
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4. The proposed plan amendment is consistent with relevant Statewide
Planning Goals except where an exception to those Goals is necessary; the criteria
required for taking an exception to the Statewide Planning Goals; applicable
policies of the Metro Plan; and the procedure required to effect a Metro Plan
. update amendment, as reflected in Exhibit A attached hereto and incorporated herein
by reference. '
NOll, THEREFORE, THE CITY OF SPRINGFIELD DOES ORDAIN AS FOLLOllS:
Section 1. The findings set forth above and incorporated herein by reference
and the findings contained in Exhibit A attached hereto and incorporated herein are
adopted.
Section 2. The Metro Plan diagram is amended adjacent to the Eugene Airport
at the western end of Airport Road' to change the designation of 20 acres from
"Airport Reserve" to "Government & Education" as shown more graphically in Exhibit
B attached hereto and incorporated herein by reference.
Section 3. This Metro Plan amendment shall become effective when identical
amen~ments have been adopted by Lane County and the City of Eugene.
Section 4. If any section, subsection" sentence, clause, phrase or portion of
the Ordinance is for any reason held invalid or unconsti tutional by a court of
competent jurisdiction, such portion shall be deemed a separate, distinct, and
independent provision and such holding shall not affect the validity of the
remaining portions hereof.
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ATTACHMENT 3'
. Ordinance No. 5689
Page 2
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17th day of
ADOPTED by the Common Council of the City of Springfield this
May, 1993, by a vote of :6:',:1 in favor and 0 against.
APPROVED by the Mayor of the City of Springfield this 17th day of May
1993.
Mayor
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EXHIBIT A
Findings in Support of the Ordinance Amending the Eugene-Springfield Metropolitan
Area General Plan Diagram to Conform with the Eugene Airport Master Plan.
Criteria #1: The amendment must be consistent with the relevant statewide
planning goals adopted by the Land Conservation and Development
Commission.
Goal 1 - Citizen Involvement
To develop a citizen involvement program that ensures the opportunity for
citizens to be involved in all phases of the planning process.
This amendment is being processed according to the adopted Metropolitan Plan amend-
ment procedure. The current procedure for an update amendment requires public
hearings before the Eugene, Springfield and Lane County Planning Commissions as well
as the Eugene and Springfield city councils and the Lane County Board of Commissioners.
,
The adopted amendment process requires that hearing notices be sent to property owners
and residents within 300 feet of the site and to other interested parties including affected
community organizations, special districts and other service providers. In addition, legal
notices announcing the public hearing must appear in local newspapers and be posted in
the general vicinity of the request. This request has been processed consistent with the
adopted process. Opportunities for oral and written public testimony will be provided at
all public hearings on this request.
Goal 2 - Land Use Planning
To establish a land use planning process and policy framework as a basis for
all decisions and action related to use of land and to assure an adequate
factual base for such decisions and actions.
This amendment is being processed according to the government-initiated process specified
in Chapter N of the Metro Plan, as implemented through the codes of each jurisdiction.
An exception to Goal 3, Agricultural Lands, is being taken according to the exceptions
process stipulated in this goal, applicable Oregon Administrative Rules, and the Metro
Plan. The exception is detailed below under the Goal 3 discussion.
Goal 3 - Agricultural Lands
To preserve and maintain agricultural lands.
Exhibit A - Findings - 1
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This proposed amendment will re-designate a 20 acre site immediately adjacent to the
airport from "Airport Reserve" to "Government and Education" on the Metro Plan
diagram. About two-thirds of the site is characterized by Coburg Silty Clay Loam Class
II soils. The other one-third is characterized by Malabon Silty Clay Loam Class I soils.
Since these soils are Class I and II soils and the site is presently designated Airport
Reserve and zoned for agricultural uses, Oregon's Statewide Planning Goals require that
an exception to Goal 3 must be taken according to the provisions in Goal 2, Land Use
Planning, Part II -- Exceptions, and applicable Administrative Rules.
An exception for this site to Goal 3, Agricultural Lands, is consistent with the four
standards for this type of exception found in Goal 2, (Part II-c) as detailed below. In
summary, the exception is justified because the land (1) is needed for airport use; (2) is
located in the most appropriate area; (3) would positively impact the social and economic
environments while causing relatively minor losses to environmental quality; and (4) is
compatible with adjacent uses.
Standard 1 - Reasons justify why the state policy as embodied in the
applicable goals should not apply.
The state policy embodied in Goal 3, Agricultural Lands, is to preserve and maintain
agricultural lands. In the case of this site, an exception is justified because the existing
airport facility is already located in this area. The existing airport location and the need
for future land acquisition and expansion of facilities was acknowledged through adoption
of the Metro Plan. As noted previously, an exception to Goal 3 for the existing airport
site has already been acknowledged by LCDC.
The Airport Master Plan, completed in 1990, identified facilities required to accommo-
date aviation demand during the next 20 years. These needs were identified through an
analysis of the airport's capacity and the projected future demand. The Master Plan
identified needs in the following areas: (1) airfield capacity, (2) airfield facility require-
ments, (3) terminal facility requirements, (4) surface transportation and auto parking, (5)
air cargo facilities, (6) general aviation facilities, and (7) support facilities such as fuel
farms and airport maintenance. The need for air cargo facilities is supported by a
projected increase in mail and freight from 2,988,903 pounds in 1989 to 5,029,500 pounds
in 2009.
Standard 2 . Areas which do not require a new exception cannot reasonable
accommodate the use.
The air cargo facility proposed for this site includes the air cargo building, connector
taxiway, apron, and parking at the southwest end of Airport Road. This operation is
directly related to the airport and must be located in close proximity since it involves
Exhibit A - Findings - 2
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loading and unloading freight from airplanes. All other sites located in the area
surrounding the airport would also require an exception to Goal 3.
During the development of the Master Plan, several sites were considered for the cargo
facility. Most of the area in the airport vicinity is in the Class I-IV soil range. No other
available site would be directly accessible by road and also offer direct connection to the
main runway as well as direct access to nearby related terminal facilities. Both airplanes
and freight trucks need access to the cargo facility. The Airport Master Plan adopted by
the Eugene City Council and Lane County Board of Commissioners in October, 1990,
identifies the site in this request as the preferred location for the air cargo facility due to
its accessibility to both the airfield and roads and because it provides the opportunity for
expansion in the future if needed.
Standard 3 - The long-term environmental, economic, social and energy
consequences resulting from the use at the proposed site with measures
designed to reduce adverse impacts are not significantly more adverse than
would typically result from the same proposal being located in areas requiring
a goal exception other than the proposed site.
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The long-term consequences of locating the air cargo facility on the proposed site would
be less significant than locating the facility in another area. The Airport Master Plan
noted that current air cargo activity is dispersed throughout the airport resulting in traffic
congestion, safety concerns, limited storage area and inefficiencies in operations. The
proposed site is the best suited to provide for safe and efficient air cargo operations in
terms of both cost savings and energy conservation. Existing roads provide access to this
site for freight trucks. Other sites would likely require new roads or realignment of
existing roads.
Construction of an air cargo facility on this site will allow air cargo operations at the
airport to continue to expand and will provide the opportunity for creation of new jobs for
the community.
Standard 4 - The proposed uses are compatible with other adjacent uses or
will be so rendered through measures designed to reduce adverse impacts.
The proposed air cargo facility is compatible and will be linked operationally with the
adjacent airport facility. Expansion of the airport facility on to this site was anticipated
and planned for at the time the Metro Plan was adopted. The proposed air cargo facility
is also compatible with the surrounding agricultural uses. Agricultural uses currently
surround most of the airport facility and provide the necessary buffer zone between the
airport and urban levels of development.
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Related to this Goal 3 exception, the Metro Plan also establishes criteria for exceptions.
Exhibit A - Findings - 3
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These additional exception criteria are found on page II-E-ll of the Metro Plan and are
addressed under criterion two on pages 8 and 9 of these findings.
Goal 4 - Forest Lands
To conserve forest lands for forest uses.
There are no forest lands or areas designated or zoned for forest use that are affected by
this amendment.
Goal 5 - Open Spaces. Scenic and Historic Areas. and Natural Resources
To conserve open space and protect natural and scenic resources.
Prior to construction of the cargo facility, this site will be screened for hydric soils. If
necessary, a survey will be conducted to determine if wetlands are present. If so, State of
Oregon and federal wetland rules and regulations will be satisfied before construction
occurs. There is adequate undeveloped land within the airport and its environs to
mitigate wetlands successfully.
According to the Oregon State Historic Preservation Office, based on a preliminary review,
there are no significant historic or archeological sites that would be affected by this
amendment.
Goal 6 - Air. Water and Land Resources Quality
To maintain and improve the quality of the air, water, and land resources of
the state.
Construction of the air cargo facility on this site will be required to comply with all
applicable local, State and federal emission discharge and process regulations. The airport
is served by the metropolitan sanitary sewer system which has the capacity to serve a new
facility on this site.
Goal 7 - Areas Subject to Natural Disasters and Hazards
To protect life and property from natural disasters and hazards.
Expansion of airport facilities on to this site will comply with all applicable local, State and
federal regulations pertaining to the 100 year flood plain. No other conditions in the area
indicate that unusual precaution is needed to prevent damage from a natural disaster or
hazard.
Exhibit A - Findings - 4
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Goal 8 - Recreational Needs
To satisfy the recreational needs of the citizens of the state and visitors and,
where appropriate to provide for the siting of necessary recreational facilities,
including destination resorts.
There are no recreation facilities located on or adjacent to the site in this request. A
softball complex is located on the north side of Airport Road approximately three-quarters
of a mile northeast of the location of the proposed air cargo facility. That facility will not
be affected by this amendment.
Goal 9 - Economic Development
To diversify and improve the economy of the state.
This Metro Plan amendment is required to allow the airport to expand based on existing
and forecasted demand to meet the needs of the growing metropolitan area.
Goal 10 - Housing
To provide for the housing needs of citizens of the state.
. This amendment will not change the status or designation of any areas presently designated
or zoned for residential use.
Goal 11 - Public Facilities and Services
To plan and develop timely, orderly, and efficient arrangement of public
facilities and services to serve as a framework for urban and rural develop-
ment.
Eugene provides urban services including storm and sanitary facilities, and fire and police
protection to the airport. Fire protection is also provided by the Lane Rural Fire
Protection District. Other services including electric service, natural gas, water, and
telephone service are provided by local and regional utilities. Based on the referral
responses received from various service providers, these services can be extended to the
proposed air cargo facility by existing service providers consistent with adopted policies.
Goal 12 - Transportation
To provide and encourage a safe, convenient, and economic transportation
system.
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Exhibit A - Findings - 5
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The adopted transportation plan for the metro area is TransPlan. It includes no specific
recommendations in the vicinity of this proposed amendment. Based on the Airport
Master Plan, future changes to Airport Road and Greenhill Road are likely to
accommodate future airport expansion. Maintaining efficient access to the proposed air
cargo site will be a priority in the re-design of any roads in this area. If future road
changes are of metropolitan-wide significance, they will be incorporated into a TransPlan
update.
Goal 13 - Energy Conservation
To conserve energy.
This goal requires that land uses maximize conservation of all forms of energy based on
sound economic principles. As with previous airport improvements, the air cargo facility
will be constructed according to contemporary conservation techniques. Expanding airport
facilities at the proposed location is the most energy-effective way to respond to the
current and future needs of the air cargo operations at the airport.
Goal 14 - Urbanization
To provide for an orderly and efficient transition from rural to urban land use.
. This goal requires that urban growth boundaries be established to identify and separate
urbanizable land from rural land. The airport is outside the Metro Plan's urban growth
boundary (UGB) but within the plan boundary. This proposed Plan diagram amendment
is limited to the area planned for immediate airport expansion. Approval of this
amendment will not change the existing location of the urban growth boundary or the Plan
boundary. In addition, this amendment will not change the current relationship between
the airport facility and the urban growth boundary. The amendment to allow expansion
of the airport on to this site was anticipated in the Metro Plan resulting in the designation
of this site as Airport Reserve.
Goal 15 - Willamette River Greenway
To protect, conserve, enhance, and maintain the natural, scenic, historical,
agricultural, economic, and recreational qualities of land along the Willamette River
Greenway.
No portion of the Willamette River Greenway is within or adjacent to the airport and the
area subject to this amendments.
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Goals 16 through 19: All these goals address coastal lands and features or ocean resources.
They are not applicable to the airport and this amendment.
Exhibit A - Findings - 6
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Criteria #2 - Adoption of Metro Plan amendments must not make the Plan
internally inconsistent.
The Metro Plan includes 8 policies that address the airport. They are in the Transpor-
tation Element beginning on page III-F-6. The proposed amendment is consistent with
these 8 policies and the overall principles in the Metro Plan. The Metro Plan recognizes
the airport at its present location and anticipates future land acquisition and expansion of
the facility.
Policy 8 -- This policy states that the Airport Plan is to be the guide for facility and service
improvements at the airport. The adopted Airport Master Plan identifies facilities that
projections indicate will be needed at the airport through 2009. The proposed air cargo
facility is identified in the Airport Master Plan as an improvement that is needed at the
present time.
Policy 9 -- This policy states that the airport shall be served with urban services so that it
can operate as an urban facility. In accordance with adopted policies, Eugene provides
urban services including storm and sanitary sewers, fire and police protection to the
airport. Additional services are provided by utilities and special districts. Services can be
extended to serve the proposed air cargo facility by existing service providers.
. Policy 10: This policy states that urban services cannot be extended to development that
is near the airport, outside the UGB, and is not located on airport (city owned) property.
The site for the proposed air cargo facility is in the City's possession and will remain under
City ownership and part of the overall airport facility after development. The Airport
Master Plan does not identify any facilities requiring urban services that would be
developed on private land outside the airport. In fact, the Plan calls for additional land
to be acquired by the City to provide protection from future incompatible urban develop-
ment.
Policy 11 -- This policy states that airport-related commercial and industrial development
is to locate on airport-owned property or on private property within the UGB. The air
cargo facility is an airport related use and will be located on airport-owned property.
Policy 12 -- This policy states that the airport environs that are not within the jurisdiction
of the Metro Plan are to be protected through the Lane County General Plan (now called
the Lane County Rural Comprehensive Plan) and supporting ordinances and regulations.
Portions within the jurisdiction of the Metro Plan are to be protected by the Plan's
supporting ordinances and regulations.
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In its off-airport component, the Airport Master Plan recognizes the importance of
protecting the airport from incompatible land uses. It acknowledges that so far local
Exhibit A - Findings - 7
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efforts have successfully coordinated the planning of the airport and its environs to
minimize compatibility problems. The Plan specifically recommends against an increase
of noise sensitive uses such as additional residential construction near the airport. It also
states that local ordinances containing airport protection provisions controlling land uses
that otherwise might encroach into airport airspace will need to be updated in light of
expanded facilities and increased air traffic.
Policy 13 -- This policy closely relates to Policy 12. It stipulates that local governments are
to control development within the airport environs to ensure that incompatible situations
are not created. Drawing on the unfortunate and costly experience of a number of other
airports, the Airport Master Plan recognizes the need to protect the Airport from such
occurrences through public acquisition of environmental buffers, update of approach zone
regulations, and careful planning regarding noise-sensitive developments. The use
proposed for the site in this request requires location on the airport site and is compatible
with existing airport uses.
Policy 14 -- This policy states that land in the airport environs and inside the UGB is to
be protected from premature development so it can be used for airport-related
development that can not locate elsewhere inside the UGB. The air cargo facility is an
example of the airport-related development referred to in this policy.
Policy 15 -- This policy requires Eugene and Lane County to maintain up to date safety
ordinances which regulate structure height, electro-magnetic and/or visual interference, and
other hazards to airport safety. The Airport Master Plan includes an off-airport land use
component calling for update of local height regulations to reflect the control surfaces
related to the airport's approaches. The air cargo site will be developed consistent with
safety regulations to ensure that no interference with airport operations will occur.
In addition to the eight policies addressed above, the Metro Plan also includes the
following criteria that need to be addressed for all new exceptions and for expansion of
existing exceptions.
a. Compatibility with existing development pattern and density.
The requested amendment will allow development of this site in a manner that is
compatible with existing development as well as future uses planned for this general
vicinity. The area to the north and west of the site in this request is designated
"Government and Education" on the Metro Plan diagram and is part of the airport. The
air cargo facility proposed for this site will be integrated with the airport based on the
adopted Airport Master Plan. The area to the south and east is designated Airport
Reserve on the Metro Plan diagram. It is in agricultural use although the Metro Plan
acknowledges that at some time it may be needed for airport expansion. The closest
houses are at least 1,500 feet away.
Exhibit A - Findings - 8
. During construction of the proposed air cargo facility, drainage improvements will be
designed and constructed to ensure that natural drainage patterns in the area are not
disrupted. All lighting will be directed inward. Noise will be minimal, certainly less than
that generated by aircraft in the immediate area.
b. Adequacy of on-site sewage disposal suitability or community sewage.
The airport is served by the metropolitan sanitary sewer system. The existing system has
adequate capacity to handle demand that will be generated by the planned air cargo
facility.
c. Domestic water supply availability.
The airport receives water from the Eugene Water and Electric Board consistent with
adopted policies. There is adequate capacity in the system to serve the proposed air cargo
facility.
d. Adequate access.
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Airport Road is adjacent to this site and has sufficient capacity to serve anticipated needs
of the air cargo facility. Taxiways will be constructed to provide direct connection for
aircraft to existing runways.
e. Availability of rural level services.
The Metro Plan provides for urban services to serve the airport and related uses on city
owned land. In addition, existing utilities and special districts serve this vicinity and will
continue to do so. This proposed amendment will not result in any change in current
service delivery boundaries or agreements.
f. Lack of natural hazards.
There are no identified natural hazards on this site.
g. Compatibility with resource lands adjacent to the exception area.
Lands adjacent to this exception area to the south and east are in agricultural use but are
designated Airport Reserve. Construction of the air cargo facility will be limited to the
exception area and will not create any compatibility problems for adjacent agricultural uses.
Criteria #3 - Amendments classified as update amendments must be
initiated by the governing bodies of all three jurisdictions.
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Exhibit A - Findings - 9
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This amendment is classified as an update amendment because it requires that an
exception be taken to Oregon Statewide Planning Goal 3, Agricultural Lands. This
amendment was initiated by the Eugene, Springfield and Lane County elected officials as
a government-initiated amendment.
Exhibit A - Findings - 10