HomeMy WebLinkAboutOrdinance 6193 06/18/2007
ORDINANCE NO. 6193
(General)
AN ORDINANCE AMENDING THE Q STREET REFINEMENT PLAN DIAGRAM BY RE-
DESIGNATING 1.17 ACRES OF LAND FROM MEDIUM DENSITY RESIDENTIAL (MDR)
TO GENERAL OFFICE (GO) AND AMENDING THE REFINEMENT PLAN TEXT TO ES-
TABLISH A POLICY AND CRITERIA FOR LOCATING THE GENERAL OFFICE DESIG-
NATION WITHIN THE REFINEMENT PLAN AREA.
THE COMMON COUNCIL OF THE CITY OF SPRINGFIELD FINDS THAT:
1. Article 8 of the Springfield Development Code sets forth procedures for Refinement Plan
diagram and text amendments; and
2. On March 5th, 2007 the applicant/owner of the subject property initiated the following Q
Street Refinement Plan amendment:
Redesignate 1.17 acres of land from Medium Density Residential to General Office, Case
Number LRP2007-00012, for property identified as Lane County Assessor's Map 17-03-25-24,
Tax lots 3600, 4700, 4800, 4900 and 5000 and amend the Refinement Plan text to establish a pol-
icy and criteria for locating the General Office designation within the Refinement Plan area.
3. On May 15th, 2007, the Springfield Planning Commission held a work session and public
hearing to receive testimony and hear comments on this proposal. The Planning Commission
voted unanimously (7-0) to forward a recommendation of approval to the City Council; and
4. On June 4th, 2007 the Springfield City Council held a work session and a public hearing
to consider and to receive testimony and hear comments on this proposal. The City Council is
now ready to take action on this proposal based upon the above recommendation and the evi-
dence and testimony already in the record as well as the evidence and testimony presented at this
public hearing held in the matter of adopting this Ordinance amending the Q Street Refinement
Plan diagram and text.
NOW THEREFORE, based upon the foregoing findings 1-4 the City of Springfield or-
dains as follows:
Section 1. The Q Street Refinement Plan designation of the subject property, more par-
ticularly described in Exhibit A attached hereto and incorporated herein by reference, is
hereby amended fr6in Medium Density Residential to General Office.
Section 2. The Q Street Refinement Plan Criteria for Plan Designations Section is hereby
amended by adding a second commercial section to read as follows:
2) The General Office refinement plan designation may be applied in areas with existing
Residential Metro Plan designations without altering the Metro Plan General Land Use
Diagram. To create or expand an area with this refinement plan designation, the follow-
ing criteria must be met:
a) The area of the designation must be acijacent to a boundary between Residen-
tial and Community Commercial or Major Retail Commercial Metro Plan
designations.
ORDINANCE NO. 6193
PAGE 1 OF2
b) An area must be at least one acre in size to receive the General Office refine-
ment plan designation.
c) A General Office designated area shall not be created or expanded to greater
than 1.5 acres in size unless the development area abuts a collector or arterial
street.
d) A General Office designated area shall not be created or expanded greater
than 5 acres in size.
Section 3. The Q Street Refinement Plan Policies Section is hereby amended by adding a
njnth policy to read as follows:
9. The General Office re.finement plan designation establishes areas to which the GO -
General q{fice zoning district may be applied. Areas so designated serve as transition
zones. bl.if.fering residential development jJ'om more intensive commercial development in
areas with commercial plan designations. The General Office re.finement plan designa-
tion provides appropriate locations for business and professional offices such as .finan-
cial, insurance and real estate services.
Section 4. If any section, subsection, sentence, clause, phrase, or portion of this Ordi-
nance is for any reason held invalid or unconstitutional by any court of competent juris-
diction, that portion shall be deemed a separate, distinct, and independent provision and
that holding shall not affect the validity of the remaining portion of this Ordinance.
FURTHER, although not part of this Ordinance, the Springfield City Council adopts
findings 1-4 hereinabove, and the findings set forth in the Staff Report which demonstrate con-
formance of this amendment to the Metro Plan, applicable State statutes and applicable State-
wide Planning Goals and Administrative Rules, and is attached as Exhibit A.
ADOPTED by the Common Council of the City of Springfield this 18 th day of
June , 2007 by a vote of -L for and ~ against.
APPROVED by the Mayor of the City of Springfield this18thday of June
,2007.
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ORDINANCE NO. 6193
PAGE 2 OF2
Q Street Refinement Plan Text and Map
Amendment - Type IV
& Zoning Map Amendment - Type IV
Staff Report and Findings
Hearin~ Date:
May 15 ,2007
Case Number:
ZON 2007-00011
LRP 2007-00012
Ownerl ADDlicant
Scott McKee
1101 16th Street
Springfield, OR 97477
ADDlicant's ReDresentative
Satre Associates, P.C.
132 East Broadway, Suite 536
Eugene, OR 97401
Date Submitted: March 5th, 2007
EXECUTIVE SUMMARY
The applicant is seeking approval of a Refinement Plan text and diagram Amendment to
the Q Street' Refinement Plan and a concurrent Zoning Map Amendment from Medium
Density Residential (MDR) to General Office (GO). The applicant is requesting these
amendments in order to pursue a future professional office building on the subject site.
The applicant chose to apply for the GO Zone and Refinement Plan designation
because the City's existing definition of the GO Zone designates it as appropriate for
areas which serve as a transition zone, providing a buffer between residential and more
intensive commercial development.
The subject site is located on the corner of 18th and Q Street, which is designated as a
collector street. Highway 126 is adjacent to Q. Street. There is currently no buffer.
between the existing medium density residential neighborhood and adjacent Q Street
traffic and Hwy 126 traffic. Similarly, there is currently no buffer between the more
intensive commercial development (zoned Community Commercial - CC) located east
of the site and the existing medium density residential other than Q Street.
Because the GO Zone is designed as a buffer zone between residential and more
intensive commercial development, the GO Zone provides safeguards for adjacent
residential properties including a strict limit of uses, screening, landscaping, height
standards, etc. The GO zone is the strictest of all the City's commercial zones in regards
to types of uses allowed.
As mentioned in findings in this report, Staff supports the proposed zone change and
Refinement Plan Amendment. Staff has proposed some minor changes to the
applicant's proposal related to the text amendment, in order to better accommodate
future GO use areas within the Q Street Refinement Plan area. As noted in the City of
Springfield's 2000 Commercial Lands Stud)'!_ th~~ is_ a sh2rtfall_Qf c~IJ1'!l~rciall~nd~
EXH~~~T fA
LRP2007-000/2 & ZON2007-000//
within city limits. The Metro Plan allows small scale office uses within residentially
designated areas such as the subject site without changing the land use designation.
This concept allows small scale office uses in transition areas. Similar GO designated
and zoned properties can be found in the Gateway Refinement Plan area, where
properties are designated GO on the Gateway Refinement Plan Diagram and zoned GO
on the Springfield Zoning Map, but are designated MDR on the Metro Plan Diagram. As
described in this report, language in the Metro Plan specifically allows small scale office
uses (neighborhood commercial uses) as auxiliary uses in residentially designated
areas.
In order to approve these applications, the applicant must demonstrate compliance with
the Metro Plan, Statewide Planning Goals, Oregon Administrative Rules, State Statutes,
and demonstrate the ability to service the site with adequate public facilities and
services.
This Staff Report provides findings of fact relevant to each of the applicable criteria of
approval and recommendations to the Planning Commission. Upon review of the
evidence provided by the applicant, site visits, existing structures/uses and review of the
applicable criteria of approval, staff finds that the applicant's request for a zone change
and Refinement Plan Amendment from MDR to GO is appropriate for the subject
property and recommends the Planning Commission approve the attached Order and
forward the proposal to the City Council with a recommendation for adoption.
REQUEST:
The applicant requests approval of a Refinement Plan Text and Diagram Amendment to
the Q Street Refinement Plan and a concurrent Zoning Map Amendment. The request
involves five contiguous properties at 18th and Q Street. Specifically, the applicant
proposes to change Refinement Plan designation from Medium Density Residential
(MDR) to General Office (GO) and a concurrent zone change from MDR to GO. The
requested Refinement Plan text amendment establishes policy and criteria for locating
the General Office designation within the Refinement Plan area. The applicant seeks
approval of this text and diagram amendment and zone change in order to facilitate
development of a future professional office building on the site.
SITE DESCRIPTION:
The subject site is located at the northwest corner of the intersection of 18th and Q
Street, and consists of properties identified as Lane County Assessor's Map 17-03-25-
24, Tax Lots 3600,4700,4800,4900 and 5000. The existing street addresses listed for
the site are 1865 1 ih Street, 1868 18th Street and 1866 18th Street. The total area of the
five properties is approximately 1.17 acres. The subject properties consist of three single
family homes (each on its own individual lot), and vacant land adjacent to Q Street.
The subject site is located just north of the westbound on-ramp for the Eugene-
Springfield Highway and is separated from the Highway by the Q Street right-of-way.
The site is one block west of the intersection of the Eugene-Springfield Highway with
Mohawk Boulevard/19th Street. Properties east of the subject site are zoned Community
Commercial (CC) and designated Commercial on the Metro Plan. Properties located
west and north of the subject site are zoned and designated Medium. Density
Residential.
LRP2007-000 /2 & ZON2007-000 //
2
The subject properties have approximately 246.5 feet of street frontage on 18th Street
and 170 feet of street frontage on Q Street. The City of Springfield Map of Streets by
Functional Class identifies 18th Street as a local street and Q Street as a collector street.
The properties are in an area determined to be outside of the 500-year floodplain,
according to the National Flood Insurance Program Flood Insurance Rate Map
#41039C1'153F. The properties are not in areas identified in the Local and National
Wetland Inventory Map. The Springfield Drinking Water Protection Overlay Map
indicates at least part of the. site appears to be within the 1-year Time of Travel Zone for
the 16th and "Q" Street Wellfield.
Q Street passes along the south side of the subject site. Highway 126 is immediately
south of "Q" Street, creating a large swath of right-of-way more than 400 feet wide
dividing the subject site from other development to the south.
Properties in Medium Density Residential zoning and plan designation are adjacent to
the west and north sides of the subject site.
Properties adjacent to the east side of the subject site are zoned Community
Commercial, and have various commercial uses located on-site including an auto repair
shop, Dairy Mart convenience store, a veterinarian's office, and an Izzy's Pizza parlor.
The subject properties are currently served by sanitary sewer system via an 8" concrete
pipe in the west side of 18th Street. The storm drain system is in the Q Street right-of-way
and along the east side of 18th Street. Springfield Utility Board (SUB) has indicated it has
sufficient capacity to provide electrical and water service to the site. For electric service,
SUB has overhead primary on the east side of 18th Street. For water service, SUB has a
water line that extends along the east side of 18th Street and the north side of "Q" Street.
The water line currently has three service laterals extending to the subject site.
LRP2007-000 /2 & ZON2007-000 //
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Existing Site Conditions:
18th Street looking south.
One of three existing single family houses located on
subject property
Existing commercial use located across Q Street.
LRP2 00 7-000 /2 & ZON2007-000 //
One of three existing single family houses located on
subject property
Dari Mart convenience store located across Q Street
from subject property.
Existing automotive clinic located across Q Street from
subject property.
8
REVIEW PROCESS:
The applicant has requested that application ZON2007 -00011 (Zoning Map Amendment)
be raised to a Type IV review procedure and be reviewed concurrently with Refinement
Plan Amendment Application LRP2007-00012. These two applications use similar
criteria of approval and have been combined into one staff report for ease of review.
Both applications have criteria requiring consistency with the Metro Plan and other
similar criteria. Rather than repeat these criteria for each application, they will be
addressed only once and then referenced where appropriate. Criteria that are different
will be addressed separately; the end result will be that all applicable criteria will have
been addressed.
This application was submitted to the Development Services Department on March 5th,
2007, and deemed as complete on March 19th, 2007. Notice for both applications was
mailed to Department of Land Conservation and Development (DLCD) on March 20th,
2007. Notice of the public hearing date was mailed out on Thursday, April 19, 2007 to
property owners within 300 feet of the proposed zone change per Section 14.030 (1) (a)-
(n) of the SOC. Public notice of the hearing was published in the local newspaper
(Register Guard) on April 23, 2007, as required'in Section 14.030 (2) of the SOC. No
written comments were submitted at the time of issuing this report.
METRO PLAN DESIGNATION:
The subject property is designated MDR as shown in the Metro Plan diagram. The
subject property is part of the Q Street Refinement Plan, which provides a more
localized scope related to Plan Designation. The subject property is also designated
MDR on the Refinement Plan Diagram. Specific Findings related to the Metro Plan and
Q Street Refinement Plan Designation are written in this report.
REFINEMENT PLAN TEXT PLAN DIAGRAM AMENDMENT
CRITERIA OF APPROVAL - SDC 8.030 et seq.
In reaching a decision on these actions, the Planning Commission and the City
Council shall adopt findings which demonstrate conformance to the following:
(1) The Metro Plan;
(2) Applicable State statutes.
(3) Applicable State-wide Planning Goals and Administrative Rules.
APPLICANT'S NARRATIVE:
In the Q Street Refinement Plan area, General Office use is currently permitted within
the Neighborhood Commercial designation, the Community Commercial designation
and, under specific limited circumstances, the Residential designation. The proposed
General Office refinement plan designation expands the circumstances under which
office development can occur in Residential designations. The purpose is to facilitate
neighborhood commercial services while preventing or limiting impacts to residential
, areas of more intensive commercial development.
LRP2007-000/2 & ZON2007-000//
,
9
The sections and pages in the Q Street Refinement Plan document for which the text
amendments are proposed are CRITERIA FOR PLAN DESIGNATIONSI Commercial on
page 6, and POLlCIESI Commercial on page 8 of the document. The first text
amendment will add Criterion #2 to the Commercial Criteria on page 6 following
Commercial Criterion #1. The specific wording of the proposed "Commercial Criterion
#2" is: .
APPLICANT'S PROPOSED TEXT AMENDMENT:
2) The General Office refinement plan designation may be applied in areas with
existing Medium Density Residential, Community Commercial or Major Retail
Commercial Metro Plan designations without altering the Metro Plan General Land Use
Diagram. To create or expand an area with this refinement plan designation, the
following criteria must be met:
a) The area of the designation must be adjacent to a boundary between Residential
: and Community Commercial or Major Retail Commercial Metro Plan designations.
b) An area must be at least one acre in size to receive the General Office refinement
plan designation.
c) A General Office designated area shall not be created nor expanded to greater than
1.5 acres in size unless the development area abuts a. collector or arterial street.
d) A General Office designated area shall not be created nor expanded greater than 5
acres in size.
The second amendment will add Commercial Policy #9 on page 8 following
Commercial Policy #8 and preceding the Residential policies. The specific wording of
the proposed "Commercial Policy #9" is:
9. The General Office refinement plan designation establishes areas to which the GO -
General Office zoning district may be applied. Areas so designated serve as
transition zones, buffering residential development from more intensive commercial
development in areas with commercial plan designations. The General Office
refinement plan designation provides appropriate locations for business and
professional offices such as financial, insurance and real estate services.
STAFF'S FINDINGS RELATED TO PROPOSED TEXT AMENDMENT:
Finding 1: The proposed Text Amendments will allow General Office (GO) to be an
allowable designation in the Q Street Refinement Plan.
Finding 2: The applicant proposes a Refinement Plan Text Amendment which states
that General Office (GO) refinement plan designation "...may be applied in areas with
existing Medium Density Residential, Community Commercial or Major Retail
LRP2007-000 /2 & ZON2007-000 //
/0
Commercial Metro Plan designations without altering the Metro Plan General Land Use
Diagram."
Finding 3: As listed in SDC 18.020 (Schedule of Use Categories), General Office (GO)
zoning is more restrictive in nature than Community Commercial (CC) and Major Retail
Commercial (MRC). Therefore, it is not necessary to add text into the Refinement Plan
that would allow a GO designation in the CC and MRC zones. All of the uses listed in the
GO zoning (as listed in SDC 18.020 et seq.) are also allowable uses in the CC and MRC
zones.
Finding 4: In regards to residential designations [emphasis added], the applicant
proposes text that is specific only to allowing GO Refinement Plan designations in MDR.
Page II-G-3 of the Metro Plan states:
Residential:
This category is expressed in gross acre density ranges. Using gross acres, approximately 32
percent of the area is 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. ,
Finding 5: Staff researched other properties in Springfield city limits and found that
other properties zoned and/or designated GO (on Refinement Plans) are also
residentially designated property on the Metro Plan diagram. The applicant's proposal is
consistent with other GO zoned properties in Springfield that are residentially designated
on the Metro Plan, but zoned GO.
Finding 6: As stated in the above stated Metro Plan text (Page II-G-3) auxiliary uses are
allowed in all residentially designated areas - not just MDR. Based on this finding, Staff
proposes that the Refinement Plan Text Amendment to be modified to include the
following:
"The General Office refinement plan designation may be applied in areas with existing
Residential desianations without altering the Metro Plan General Land Use Diagram... "
Finding 7: Subsection (a) of the applicant's proposed text amendment states: "(a) The
area of the designation must be adjacent to a boundary between Residential and
Community Commercial or Major Retail Commercial Metro Plan designations." Subsection
(b) of the applicant's proposed text amendment states: (b) An area must be at least one
acre in size to receive the General Office refinement plan designation.
Staff concurs with the applicant on subsections. (a) and (b) of the proposed text
amendment, taking into account the definition of the GO zone in the Springfield
Development Code. SDC 18.010(4) states:
The GO district is intended to encourage appropriate office development and to implement
neighborhood refinement plans. This district is designed to be a transition zone, providing a buffer
between residential and more intensive commercial development at the boundaries of a
Community Commercial or Major Retail Commercial designation.
Staff recommends that the proposed subsections (a) and (b) of the applicant's proposed
text amendment be added to the Q Street Refinement Plan text as stated.
LRP1007-00011 & ZON1007-00011
/I
Finding 8: Subsection (c) and (d) of the applicant's proposed text amendment state: U(c)
A General Office designated area shall not be created nor expanded to greater than 1.5
acres in size unless the development area abuts a collector or arterial street. and (d) A
General Office designated area shall not be created nor expanded greater than 5 acres in
size.
The applicant's proposed text amendment (c) and (d) are both safeguards proposed to
help preserve the residential character of neighborhoods with future GO zoning on the
boundary. Both subsections (c) and (d) of the proposed text amendment are consistent
with existing requirements for the NC zone, a similar zone allowed in residentially
designated properties in the Metro Plan. Staff concurs with the applicant on these two
portions of the proposed text amendment, taking into account the definition of the GO
zone in the Springfield Development Code Section 18.010(4); the definition of the NC
zone inSDC Section 18.010(1); and the definition of auxiliary uses as stated on page 11-
G-3 of the Metro Plan. .
Finding 9: As previously indicated in this report, commercial Policy #9 of the applicant's
proposed text amendment states: 9. The General Office refinement plan designation
establishes areas to which the GO - General Office zoning district may be applied. Areas
so designated serve as transition zones, buffering residential development from more
intensive commercial development in areas with commercial plan designations. The
General Office refinement plan designation provides appropriate locations for business
and professional offices such as financial, insurance and real estate services.
Finding 10: Staff has reviewed this portion of the applicant's proposed text amendment
which adds a commercial Policy #9 and find it consistent with the existing language in
SDC18.010(4). Staff recommends that this proposed policy be added to the Refinement
Plan as proposed.
Finding 11: SDC 8.030 (1) states that in order to approve a Refinement Plan
Amendment, the Planning Commission and the City Council shall adopt findings which
demonstrate conformance to the Metro Plan. The following is the Applicant's Narrative
related to conformance with the Metro Plan:
.
APPLICANT'S NARRATIVE RELATED TO SDC 8.030 (1):
FindinQs:
Regarding SDC 8.030(1), conformance with the Metro Plan, the following proposed
findings are organized in two parts: conformance with the Metro Plan Diagram, and
conformance with Metro Plan policies.
Conformance with the Metro Plan Diaaram
The proposed refinement plan designation will allow the limited application of the
General Office land use zone in certain areas designated on the Metro Plan Diagram as
Medium Density Residential. Limited office developments can be approved as
auxiliary uses in residentially designated areas. The Metro Plan's Residential
designation description assumes approximately 32 percent of residential areas will be
dedicated to auxiliary uses. A portion of the Metro Plan text specific to residential land
use designation is relevant to the present application and reads as follows:
LRP2007-000 12 & ZON2007-000 II
12
"Using gross acres, approximately 32 percent of the area is 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." (Chapter II-G, Metro Plan Diagram, land Use
Designations, Residential, p. II-G-3)
The 32 percent available for auxiliary use applies to all residentially designated gross
acreage within the Urban Growth Boundary (UGB). The proposed Refinement Plan
Amendment will re-designate 1.14 acres. An analysis of the precise current allocation
of residential auxiliary uses in the metropolitan area is not warranted for a proposal of
this scope. According to the Metro Plan text in Chapter G, Metro Plan Diagram, p. II-G-
1, "When local plans include densities or land use allocations significant on a
metropolitan scale, their adoption requires analysis of metropolitan implications,
followed by amendments to the Metro Plan, when necessary." The consultant team for
this application used GIS data to calculate the amount of land within the Q Street
Refinement Plan area the Metro Plan Diagram designates for residential use. Of the
Refinement Plan's approximately 479 acres, the Metro Plan applies Residential
designation to approximately 404 acres. The designation is broken down as shown in
Table 1, below.
Table 1. Metro Plan land Use Designation in the "Q" Street Refinement Plan Area
Metro Plan Designation Acreage
Commercial
low Density Residential
Medium Density Residential
High Density Residential
Total Residential
Total Refinement Plan Area
75.14
18.12
311.73
74.18
404.03
479.17
(Source: Satre Associates, P.C., using lane Council of Governments, GIS data)
The proposed Refinement Plan Amendment will shift 1.17 acres of Metro Plan
residentially designated land from principal use to auxiliary use. In terms of impact on
the area encompassed by the "Q" Street Refinement Plan Diagram, 1.17 acres is less
than three-tenths of 1 percent (0.29%) of the 404 acres with Residential Metro Plan
designation within the refinement plan area itself. The amendment is not significant on
a metropolitan scale.
A comparison of General Office regulations with Neighborhood Commercial
regulations reveals many similarities. An important similarity is that allowed uses in
General Office and Neighborhood Commercial create only limited impacts on
residential properties. As shown in the Schedule of Use Categories for Commercial
zoning types in the Springfield Development Code (SDC Section 18.020), the list of
permitted uses in General Office zoning is much more restricted and allows fewer uses
compared with the list of permitted uses in Neighborhood Commercial zoning.
The proposed amendment will expand areas for neighborhood commercial services as
LRP2007-000 12 & ZON2007-000 II
13
anticipated in the Metro Plan's allowance for auxiliary uses. In the entire "Q" Street
Refinement Plan land Use Diagram, only one property is currently designated
Neighborhood Commercial and no properties are designated General Office. This
indicates a need for General Office development in the Refinement Plan area. The one
property currently designated Neighborhood Commercial, located at 2454 10th Street
adjacent to Hayden Bridge Road (Map and Tax lot 17-03-26-12,00100), has an area of
approximately 0.37 acres. The Metro Plan Diagram applies residential designation to
the referenced property, indicating that its Neighborhood Commercial use is an
auxiliary use within the Metro Plan's residentially designated acreage.
The land area that is the subject of the current proposal for General Office re-
designation is small in relationship to the amount of residentially designated land
within the "Q" Street Refinement Plan area, 1.17 acres out of 404. The proposed
Refinement Plan re-designation does not detract significantly from the land available
for the primary residential use within the refinement plan area's 404 acres of Metro
Plan residential designation, let alone within the entire Metropolitan area's residential
land inventory. Because the proposed refinement plan re-designation provides office
services to neighborhood residents and other city residents while permitting a narrow
range of uses compatible with adjacent residential uses, the re-designation provides
an auxiliary use in the Metro Plan's residential area as provided for in the Metro Plan.
This proposed amendment establishing and applying the General Office refinement
plan designation creates the context within which these auxiliary uses will conform to
the refinement plan, as required by the Metro Plan. The concurrent application for
Zoning Map Amendment applies a zoning district that permits these uses.
The proposed auxiliary uses will be compatible with the Springfield Development
Code, specifically the establishment clause for the GO General Office District, SDC
Section 18.010(4):
"The GO district is intended to encourage appropriate office development and to
implement neighborhood refinement plans. This district is designed to be a transition
zone, providing a buffer between residential and more intensive commercial development
at the boundaries of a Community Commercial or Major Retail Commercial designation. A
development area of at least one acre shall be required."
The subject site is at such a transition site, within a Metro Plan residential designation,
at the edge of a residential neighborhood, between residentially designated and zoned
land to the west and commercially designated and zoned land to the east.
Other local controls in the Springfield Development Code will apply to future
development of the property. No conflicts with those controls are anticipated, and
none arise necessarily from the amendment as it is written.
Because the proposed amendments facilitate auxiliary uses similar in nature and
impact to the Neighborhood Commercial uses anticipated by the Metro Plan, and these
uses will be compatible with refinement plans, zoning ordinances, and other local
controls for allowed uses in residential neighborhoods, the General Office refinement
plan designation can be applied to land designated Residential in the Metro Plan.
Allowed auxiliary uses will not contradict or conflict with the purposes and
requirements of the subject site's current Metro Plan designation. Therefore, the
proposed Refinement Plan Amendments conform with the Metro Plan Diagram.
Conformance with Metro Plan Policies
LRP2007-000/2 & ZON2007-0001/
/4
Metro Plan Chapter III, Specific Elements
A. Residential Land Use and Housing Element
Policy A.22. Expand opportunities for a mix of uses in newly developing areas and
existing neighborhoods through local zoning and development regulations.
Findina:
The proposed Refinement Plan Amendments will expand opportunities for a mix of
uses in the "Q" Street neighborhood. They will make it possible to apply the General
Office zoning district to a site with a Residential Metro Plan designation. Springfield
Development Code, Section 18.010(4) explains the purpose of the district:
"(4) GO GENERAL OFFICE DISTRICT. The GO District is intended to encourage
appropriate office development and to implement neighborhood refinement plans. This
district is designed to be a transition zone, providing a buffer between residentiaiand
more intensive commercial development at the boundaries of a Community Commercial or
Major Retail Commercial designation. A development area of at least one acre shall be
required. "
The regulations and standards of the General Office district will provide greater
flexibility than those of the existing residential zone. The amendments will permit
establishing the zone in the transition area between residential development (west of
18th Street) and more intensive community commercial development (east of 18th
Street). By making it possible to apply the GO zoning district to transitional locations
within the area of the refinement plan, this proposed Refinement Plan Amendment
facilitates mixed uses in an existing neighborhood and fulfills the intent of Metro.Plan
Policy A.22.
B. Economic Element
Policy B.6. Increase the amount of undeveloped land zoned for light industrial and
commercial uses correlating the effective supply in terms of suitability and availability
with the projections of demand.
Findinas:
The subject site has characteristics that make it suitable for low-impact commercial
uses but unsuitable for intensive community commercial use. It has frontage on "Q"
Street, a Major Collector, and is adjacent to an interchange on the Eugene-Springfield
Highway (1-105). It is adjacent to Community Commercial designation and also
adjacent to Residential designation, and therefore fits the intention of SDC 18.010(4)
for the location of General Office zoning.
The same adjacency to a state highway intersection that makes this site suitable for
low-impact commercial uses compromises its value for residential purposes. As
mentioned above, the subject site has significant exposure on its south' and east sides
to the Eugene-Springfield Highway (1-105) and its westbound on-ramp. This results in
undesirable characteristics of view, privacy, dust and noise. Specifically, this two-lane
on-ramp is less than 100 feet from the subject site, separated from it only by the "Q"
Street right-of-way with no intervening buffer. These characteristics were noted in the
"Q" Street Refinement Plan document in its "Findings" section, specifically in the
LRP2007-000 12 & ZDN2007-000 II
15
.
Transportation Findings #4 and #7 on page 5 of the refinement plan document:
#4): There is little or no sound buffering between the Eugene-Springfield Highway and
the residential areas within the Q Street area.
#7): There is little or no mitigation of dust between the Eugene-Springfield Highway
and'the Q Street residential area. (Q Street Refinement Plan Transportation Findings,
p.5)
These characteristics diminish the site's attractiveness as a location for residential
housing and limit its development potential in its current zoning with the result that
three lots are vacant and the remaining two lots are underdeveloped. Lot 4700 has a
912 square foot house (counting attic space) and Lot 4800 has a 1,092 square foot
house while Lots 3600, 4900 and 5000 are vacant. With its attractiveness as a location
for housing diminished by its adjacency to the state highway, the site's suitability for
other uses should be considered.
Regarding effective supply and projections of demand, the City of Springfield adopted
the Springfield Commercial Lands Study, February 2000. It contains the following
passages:
"A detailed supply/demand analysis revealed a need for a minimum of 255 acres of
commercial land to the year 2015 based on an absorption rate of 17 acres per year.
Currently, there are 85 acres of vacant and 12 acres of redevelopable commercial land
within the City's UGB, a total of 97 acres." (Finding, page ii.)
"Given the patterns of development, the CAC [Citizen Advisory Committee] asserts the
vacant land inventory represents no more than a two-year supply, and noted that there is a
need for a supply of both larger and smaller sites to provide choice, diversity and
economy in the marketplace. Given the current shortage of larger sites, rezoning or
annexation may be necessary for this to occur." (Significant Recommendation, page iv.)
"Policy 1-A: Maintain a mixed supply of large and small commercial sites through
strategies such as rezoning or annexation to serve Springfield's future population." (Key
Policy, page v.)
Clearly, there is a critical need for more commercial land. The proposed Refinement Plan
Amendments would facilitate development of the subject site for commercial purposes. It
would do so at the expense of potential residential development on land that is, at best,
only marginally suited for the purpose. The amendments will conform to the
recommendations and policies of the Springfield Commercial Lands Study.
To summarize, the amendment affects a site that:
· consists of undeveloped and underdeveloped land
· is ill-suited for its current designation
· is well suited as a transition from residential to more intense commercial use
· provides critically needed land available for commercial uses.
8y applying the appropriate refinement plan designation, the amendments increase
the amount of suitable land available for commercial uses, and move toward a better
equilibrium of supply and demand. Therefore, they conform with Policy 8.6.
Policy 8.22. Review local ordinances and revise them to promote greater flexibility for
promoting appropriate commercial development in ,residential neighborhoods.
LRP2007-000 /2 & ZON2007-000 //
/6
Findinas:
The current "Q" Street Refinement Plan and land Use Diagram do not explicitly allow
General Office zoning in areas with Residential Metro Plan designations. The
proposed amendments would create policy and criteria in the refinement plan to
introduce office development as an auxiliary use in Metro Plan residential designation
at transitional areas without permitting more intensive Community Commercial levels
of development. A zoning and plan designation of Community Commercial would not
be appropriate for areas such as the subject site because in worst case scenarios
Community Commercial uses could produce traffic patterns and volumes, noise and
other impacts detracting from the residential character of the neighborhood. By
contrast, the requested GO General Office refinement plan designation promotes lower
impact commercial development and provides a buffer between residential and more
intensive commercial development.
The proposed Refinement Plan Amendment provides opportunities in transitional
areas for an intermediate level of development that expands commercial opportunities
at a scale appropriate for residential neighborhoods and the amendment is therefore
consistent with Economic Element Policy B.22.
Conformance with Refinement Plan Policies
Internal consistency of the Refinement Plan is not explicitly a criterion for a
Refinement Plan Amendment. However, because a refinement plan builds on the
Metro Plan and, for a site specific area, serves as a comprehensive planning
document, the requirement of conformance with the Metro Plan might be interpreted
as requiring Refinement Plan Amendments to maintain consistency within a
refinement plan. Furthermore, the "Q Street Refinement Plan" includes criteria for the
site specific application of certain plan designations. To ensure that there are
sufficient bases and guidance for the application of the "Q Street Refinement Plan"
General Office designation, and to ensure that the proposed Diagram Amendment is
consistent with the Refinement Plan, this application requests approval of "Q Street
Refinement Plan" text amendments as follows:
On page 6, following Commercial Criterion #1, add Criterion #2:
2) The General Office refinement plan designation may be applied in areas with existing
Medium Density Residential, Community Commercial or Major Retail Commercial Metro
Plan designations without altering the Metro Plan General Land Use Diagram. To create or
expand an area with this refinement plan designation, the following criteria must be met:
a) The area of the designation must be adjacent to a boundary between Residential and
Community Commercial or Major Retail Commercial Metro Plan designations.
b) An area must be at least one acre in size to receive the General Office refinement plan
designation.
c) A General Office designated area shall not be created nor expanded to greater than 1.5
acres in size unless the development area abuts a collector or arterial street.
d) A General Office designated area shall not be created nor expanded greater than 5
acres in size.
And on page 8, following Commercial Policy #8, add Policy #9:
LRP2007-00012 & ZON2007-00011
17
9. The General Office refinement plan designation establishes areas to which the GO -
General Office zoning district may be applied. Areas so designated serve as transition
zones, buffering residential development from more intensive commercial development in
areas with commercial plan designations. The General Office refinement plan designation
provides appropriate locations for business and professional offices such as financial,
insurance and real estate services.
Upon approval, these text amendments provide policies and criteria with which the
proposed Refinement Plan Diagram Amendment conforms.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH SDC 8.030 (1):
Finding 12: As noted by the applicant and as previously mentioned in this report, page
II-G-3 of the Metro Plan allows up to 32% of residentially designated land to be used for
auxiliary uses. The GO zone is not specifically mentioned in the Metro Plan, as it is a
recent addition to the City zoning options. However, as noted in the applicant's narrative
and earlier in this report, the GO zone is more restrictive than the NC (Neighborhood
Commercial) zone regarding allowable uses. Since the Metro Plan specifically mentions
NC uses as allowable auxiliary uses in residentially designated areas, staff concludes
that GO uses fit into the definition of auxiliary uses. All of the uses listed in SDC 18.020
et seq. for the GO zone are also listed in the NC zone.
The applicant's burden of proof complies with SDC Section 8.030(1) because the
applicant has cited numerous Metro Plan principles, findings, objectives and goals
inclusive of the arguments for the need for the General Office Refinement Plan
designation. Staff concurs with the applicant's submittal.
APPLICANT'S NARRATIVE RELATED TO SDC 8.030 (2):
(2) Applicable State statutes.
The state statutes that apply to this amendment include Oregon Revised Statute (ORS)
197.200, which stipulates what is required of refinement plans, and ORS 197.250,
which requires comprehensive plans to be in compliance with the Statewide Planning
Goals. ORS 197.200(3) states:
"(3) A refinement plan and associated land use regulations adopted prior to September 9,
1995, may qualify as a refinement plan if the local government holds a public hearing to
gather public comment and decides to adopt the plan as a refinement plan under this
section. "
The Q Street Refinement Plan was adopted March, 1987. The public record does not
indicate whether a public hearing was held subsequently to adopt the plan under ORS
197.200(3).
ORS sections 197.200(2)(a)-(d) stipulate that a refinement plan shall:
(a) Establish efficient density ranges, including a minimum and a maximum density for
residential land uses;
LRP1007-00012 & ZON2007-00011
18
(b) Establish minimum and maximum floor area ratios or site coverage requirements for
nonresidential uses;
(c) Be based on a planning process meeting statewide planning goals; and
(d) Include land use regulations to implement the plan.
To the extent that the "Q" Street Refinement Plan is subject to and meets these
requirements, the following is true of the proposed amendments: These amendments
establish a new plan designation within the refinement plan for a use that is already
permitted in the refinement plan area under other plan designations. The amendments
do not affect the list of allowed uses within the refinement plalJ area. They do not affect
density ranges for land uses. They do not affect floor area ratios or site coverage
requirements for nonresidential uses. They do not affect the planning process upon
which the refinement plan is based. Finally, the amendments do not affect the land use
regulations that implement the plan. Therefore, the amendment complies with ORS
197.200.
ORS 197.250 requires comprehensive plans to be in compliance with the Statewide
Planning Goals. The Metro Plan is the applicable comprehensive plan. Because no
amendment is proposed to the Metro Plan or the General' land Use Diagram, the
requested Refinement Plan Amendment does not affect compliance of the
comprehensive plan with the statewide goals. However, to whatever extent these
Goals may apply to the proposed Refinement Plan Amendments, conformance is
addressed in the following proposed findings regarding SDC 8.030(3), which are herein
incorporated by reference.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH SDC 8.030 (2):
,Finding 13: Staff concurs with the applicant's response citing ORS 197.200 and ORS
197.250. Specific discussion related to compliance with Statewide Planning Goals are
addressed in the Findings below.
In addition, these applications comply with ORS 197.610 POST ACKNOWLEDGEMENT
PROCEDURES which applies to the DLCD notification as required as part of processing
these applications. The City sent notice for the proposed Refinement Plan and Zoning
Map amendment via Fed Ex to the Department of Land Conservation and Development
(DLCD) on March 20, 2007. The notice included a description of the proposed
amendments with commentary. As required, the notice to DLCD was received prior to 45
days before the first evidentiary hearing. No comments were received from DLCD
regarding these applications.
APPLICANT'S NARRATIVE RELATED TO SDC 8.030 (3):
(3) Applicable State-wide Plannina Goals and Administrative Rules.
The "Q" Street Refinement Plan and land Use Diagram do not constitute a refinement
plan meeting the requirements of ORS 197.200, and therefore are not part of the Metro
Plan. Because amendments to the "Q" Street Plan do not affect the Metro Plan, they do
not constitute a Post Acknowledgement Plan Amendment (PAPA) and therefore
application of the Statewide Planning Goals is not required. However, to the degree
LRP2007-000/2 & ZON2007-000//
/9
that the Statewide Planning Goals may be relevant, the following responses to the
requirements of those goals are offered.
APPLICANT'S NARRATIVE RELATED TO GOAL 1:
Goal 1 - Citizen Involvement: To develop a citizen involvement program that insures
the opportunity for citizens to be involved in all phases of the planning process.
FindinQ:
The City of Springfield has an acknowledged citizen involvement program and an
acknowledged process expressed in the Springfield Development Code for securing
citizen input on all proposed Refinement Plan Amendments. It insures the opportunity
for citizens to be involved in all phases of the planning process and sets out
requirements for such involvement. The amendments proposed do not amend the
acknowledged citizen involvement program. The process for adopting these
amendments complies with the requirements of the citizen involvement provisions.
The Metro Plan contains an acknowledged citizen involvement program satisfying
Goal 1. The citizen involvement program is in Metro Plan Chapter III, pp. III-K-1 to III-K-
4. The proposed amendment complies with and does not affect or amend the citizen
involvement element in the Metro Plan.
The Refinement Plan Amendment is subject to the public notification and public
hearing processes provided for Type IV application procedures as stipulated in SDC
3.100(1) through (7), which, along with the remainder ofthe Code and with Statewide
Goals and state statutes, provide the provisions for citizen involvement.
The City's acknowledged program for citizen involvement, which includes public
notice, public hearings at the level of the planning commission and city council,
notification of decision and notification of the right of appeal, provides citizens with
the opportunity to review the proposed amendment and make recommendations in
written and oral testimony. These acknowledged citizen involvement provisions afford
ample opportunity for citizen involvement consistent with Goal 1.
For the reasons cited, including the Metro Plan's and the City of Springfield's
acknowledged programs for citizen involvement, the amendment conforms with Goal
1.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 1:
Finding 14: These applications comply with Goal 1 because they are being reviewed
under an acknowledged citizen involvement program.
As previously mentioned in this report, notice for both applications was mailed to
Department of Land Conservation and Development (DLCD) on March 20th, 2007.
Notice of the public hearing date was mailed out on Thursday, April 19, 2007 to
property owners within 300 feet of the proposed zone change per Section 14.030 (1)
LRP2 00 7-000 /2 & ZON2007-000 //
20
(a)-(n) of the SOC. Public notice of the hearing was published in the local newspaper
(Register Guard) on April 23,2007, as requiredin Section 14.030 (2) of the SOC.
Staff concurs with the applicant's written statement related to Goal 1.
APPLICANT'S NARRATIVE RELATED TO GOAL 2:
Goal 2: Land Use Planning: To establish a land use planning process and policy
framework as a basis for all decision and actions related to use of land and to assure
,an adequate factual base for such decisions and actions.
FindinQ:
Goal 2 requires that plans be coordinated with the plans of affected governmental
units and that opportunities be provided for review and comment by affected
governmental units. In order to comply with the Goal 2 coordination requirement, the
City will be responsible for coordinating the adoption of this amendment by providing
notice to all affected governmental units and responding in its findings to the
legitimate concerns of affected governmental units. There are no Goal 2 Exceptions
required.
The EugenelSpringfield Metro Area General Plan (Metro Plan), the Springfield Code,
and the Statewide Planning Goals and applicable state statutes and administrative
regulations, provide policies and criteria for the evaluation of plan amendments.
Compliance with these measures assures an adequate factual base for approval of the
amendment. As demonstrated in findings provided in this document, the amendment
is consistent with the Metro Plan, the "Q" Street Refinement Plan, the Springfield
Development Code, applicable state statutes and the Statewide Planning Goals.
Therefore, the amendment conforms with Goal 2.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 2:
Finding 15: These applications comply with Goal 2 because the SOC requires
consistency between the Statewide Planning Goals, the acknowledged Metro Plan,
adopted refinement plans and special area plans and the zoning.
Staff concurs with the applicant's written statement related to Goal 2.
APPLICANT'S NARRATIVE RELATED TO GOAL 3:
Goal 3 - Agricultural Land: To preserve and maintain agricultural lands.
FindinQ:
Goal 3 applies to lands that are designated Agricultural. This amendment is for
property located within the city limits of Springfield and does not affect land
designated for agricultural use. Therefore, Goal 3 is not applicable to the amendment.
LRP2007-000/2 & ZON2007-000//
2/
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 3:
Finding 16: The subject property is located within the city limits on land planned and
zoned for urban use. The City does not have any agricultural zoning districts, either
within its city limits or within the urban growth boundary.
Finding 17: Goal 3 does not apply to these applications because the subject
property is within Springfield's city limits.
APPLICANT'S NARRATIVE RELATED TO GOAL 4:
Goal 4 - Forest Land: To conserve forest lands by maintaining the forest land base
and to protect the state's forest economy by making possible economically efficient
forest practices that assure the continuous growing and harvesting of forest tree
species as the leading use on forest land consistent with sound management of soil,
air, water, and fish and wildlife resources and to provide for recreational opportunities
and agriculture.
Findina:
Goal 4 applies to lands that are designated for forest use. This amendment is for
property located within the city limits of Springfield and does not affect land
designated for forest use. Therefore, Goal 4 is not applicable to the amendment.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 4:
Finding 18: The subject property is located within an acknowledged urban growth
boundary. Goal 4 does not apply within urban growth boundaries. Staff concur with
the applicant's written statement related to Goal 4.
APPLICANT'S NARRATIVE RELATED TO GOAL 5:
Goal 5 - Open Spaces, Scenic and Historic Area, and Natural Resources: To conserve
open space and protect natural and scenic resources.
Findina:
Oregon Administrative Rule 660-023-000 through 660-000-250 establish procedures
and criteria for inventorying and evaluating Goal 5 resources and for developing land
use programs to conserve and protect significant Goal 5 resources.
Pursuant of Goal 5, the City of Springfield has adopted the following documents:
· Eugene-Springfield Metropolitan Area General Plan, revised 2004
· City of Springfield, Local and National Wetlands Inventory Map, December 2005
· City of Springfield Natural Resource Study, adopted, November 2005
LRP2007-000 12 & ZON2007-000 II
22
Oregon Administrative Rule 660-023-0250 establishes the applicability of GoalS rules
to Post Acknowledgement Plan Amendments (PAPA), and specifies certain procedures
and requirements for local governments to follow in the adoption or amendment of all
plan or land use regulations pertaining to GoalS resources. However, the requested
Refinement Plan Amendment does not affect the Metro Plan nor the General Land Use
Diagram, and therefore cannot constitute a PAPA. Compliance with GoalS need not
be addressed. Nonetheless, to whatever extent the procedures and requirements of
OAR 660-023-0250 should be addressed in considering the proposed Refinement Plan
Amendments, the following findings are presented.
Oregon Administrative Rule 660-023-0250 states:
"(3) Local governments are not required to apply GoalS in consideration of a PAPA unless
the PAPA affects a GoalS resource. For purposes of this section, a PAPA would affect a
GoalS resource only if:
(a) The PAPA creates or amends a resource list or a portion of an acknowledged plan or
land use regulation adopted in order to protect a significant GoalS resource or to address
specific requirements of GoalS;
(b) The PAPA allows new uses that could be conflicting uses with a particular significant
GoalS resource site on an acknowledged resource list; or
(c) The PAPA amends an acknowledged UGB and factual information is submitted
demonstrating that a resource site, or the impact areas of such a site, is included in the
amended UGB area."
The following discussion will demonstrate that the proposed Refinement Plan
Amendment does not raise any issues that would require the City of Springfield to
apply GoalS.
Firstly addressing OAR 660-023-250(a): The changes sought by this application do not
create or amend a resource list or any portion of an acknowledged plan or land use
regulation adopted in'order to protect a significant GoalS resource on the subject site.
Secondly addressing OAR 660-023-250(b): The changes sought by this application will
not allow new uses that could conflict with a significant GoalS resource site. There are
no significant GoalS resources on the subject site. None of the various studies,
inventories, refinement plans, and facilities plans list this specific site as a significant
resource, apply a GoalS resource overlay, or otherwise regulate or limit the
redevelopment of this site as a GoalS resource.
No Goal 5 resources are identified on or near the property on the City of Springfield
Local and National Wetlands Inventory Map. The closest Goal 5 resource identified by
the City of Springfield Natural Resource Study Report is the "Q" Street Ditch, a portion
of which is located approximately 400 feet to the south of the subject site at its closest
LRP2007-000/2 & ZON2007-000//
'23
point. It is separated from the subject site by the right-of-way of "Q" Street, a paved
street classified as a collector street, and by the right-of-way of the Eugene-Springfield
Highway, also known as State Highway 126 (1-105), which includes at least six paved
lanes, including its eastbound exit ramp and its westbound entrance ramp. The Goal 5
Recommendation in the City of Springfield Natural Resource Study Report reads as
follows:
"Limit conflicting uses and employ low impact development practices when developing
within 150 feet of the watercourse. The "Q" Street Ditch is protected by a 50-foot
development setback and site plan review standards described in 31.240 of the Springfield
Development Code. No additional setbacks are necessary." 1
A 50-foot development setback is required from the "Q" Street Ditch under stormwater
provisions of the Springfield Development Code. In addition, as stated in the text of the
Natural Resource Study Report, the "Q" Street Ditch is associated with the "Q" Street
Floodway. The "Q" Street Floodway is a tributary to a water quality limited water
course, the Willamette River, and is protected by a 50-foot setback and a site plan
review requirement.
Because the resource impact area as it is defined by the City of Springfield Natural
Resource Study Report is not encroached upon by the subject site, the uses allowed
by the proposed amendment will not conflict with a Goal 5 resource.
Addressing OAR 660-023-250(c): The changes sought by this application do not amend
the acknowledged City of Springfield Urban Growth Boundary. Therefore, with regard
to this criterion, the City is not required to apply Goal 5.
Oregon Administrative Rule 660-023-0250 "Applicability" stipulates that local
governments are required to apply Goal 5 when considering a Post Acknowledgment
Plan Amendment if the amendment affects a Goal 5 resource. For the purposes of that
rule, the section lists three circumstances (OAR 660-023-0250(3)(a), (b), and (c) quoted
above) under which a Post Acknowledgment Plan Amendment would affect a Goal 5
resource. As demonstrated by these findings, none of the three circumstances are
raised by the proposed amendments, and the amendments will not affect a Goal 5
resource. The City of Springfield is not required to apply Goal 5 and can, therefore,
find that the action requested by this application is consistent with Statewide Planning
Goal 5.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 5:
Finding 19: Goal 5 does not apply to these applications because there are no
inventoried resources on the subject property. As noted by the applicant, Oregon
Administrative Rule 660-023-0250 establishes the applicability of Goal 5 rules to
Post Acknowledgement Plan Amendments (PAPA), the requested Refinement Plan
Amendment and Zoning Map Amendment do not affect the Metro Plan or the
General Land Use Diagram, and therefore does not constitute a PAPA. Staff
concurs with the applicant's narrative related to Goal 5 compliance.
1 City of Springfield Natural Resource Study Report, October 2005. p. 213.
LRP2 00 7-000 /2 & ZON2007-000 //
24
APPLICANT'S NARRATIVE RELATED TO GOAL 6:
Goal 6 - Air, Water and Land Resources Quality: To maintain and improve the quality
of the air, water and land resources of the state.
FindinQ:
The purpose of Goal 6 is to maintain and improve the quality of the air, water and land
resources of the State. Consistency with Goal 6 requires that development comply
with applicable state and federal air and water quality standards and related local
policies. Additionally, as demonstrated in findings regarding Goal 11 incorporated
herein by reference, urban facilities are provided, in part, to protect air, water and land
resources.
The adopted and acknowledged Metro Plan elements addressing Goal 6 are based on
Metro Plan General land Use Diagram designations. The proposed R~finement Plan
Amendments do not amend the Metro Plan, its General land Use Plan Diagram, any of
the Goal 6 related policies of the Metro Plan, nordo they amend the Regional
Transportation Plan, the Springfield Development Code, other applicable Goal 6
policies, or any regulations implementing those policies.
Nothing in the proposal, the character of the site or potential uses indicates that the
amendments would further compromise air, water and land resources. Future
development of the site must necessarily be in conformance with local, state and
federal law including applicable elements of the Springfield Development Code.
Because no specific development or physical change to the site is proposed by this
amendment, the project's compliance with applicable state, federal and local air and
water quality standards and local policies is indeterminant, and review is deferrable
until development permits are required.
The evidence supports a reasonable expectation that future development resulting
from the proposed Refinement Plan Amendments will be consistent with Goal 6
requirements. Therefore, the City of Springfield can reasonably expect that future
development under the proposal will comply with applicable state and federal
environmental quality standards. The proposed Refinement Plan Amendments are
consistent with Goal 6.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 6:
Finding 20: As noted by the applicant, the proposed Refinement Plan Amendments
and Zoning Map Amendment do not amend the Metro Plan, its General Land Use
Plan Diagram, any of the Goal 6 related policies of the Metro Plan, nor do they
amend the Regional Transportation Plan, the Springfield Development Code, other
applicable Goal 6 policies, or any regulations implementing those policies.
The subject property is located in the 1 year Time of Travel Zone, which is regulated
by the Drinking Water Protection Overlay District - Article 17. Any new development
on the subject property is subject to compliance with Article 17 and other applicable
regulations related to Goal 6. Staff concurs with the applicant's narrative related to
Goal 6 compliance.
LRP2 00 7-000 12 & ZON2007-000 II
25
APPLICANT'S NARRATIVE RELATED TO GOAL 7:
Goal 7 - Areas Subject to Natural Disasters and Hazards: To protect life and property
from natural disasters and hazards.
Findino:
Goal 7 requires that development subject to damage or potential loss of life not be
planned or located in known areas of natural hazards and disasters without
appropriate safeguards. The goal also requires that plans be based on an inventory of
known areas of natural disaster hazards (floods, landslides, earthquakes, wildfires and
other related hazards).
The subject site is not included in the City's inventory of known areas of natural
hazards. The Oregon Department of Geology and Mineral Industries inventory of
landslide areas does not identify or inventory the subject site. The subject site is
outside of the 500-year floodplain, according to the National Flood Insurance Program
Flood Insurance Rate Map that encompasses the site (Map #41039C1153F). The
proposed amendment does not amend, remove or exempt compliance with any other
regulations or standards that reduce risk to people and property from natural hazards.
The proposed amendment does not affect any additional geographic area other than
the subject site. No specific development is proposed with this Refinement Plan
Amendment. For the reasons set forth the amendment is in compliance with Goal 7.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 7:
Finding 21: Staff has reviewed the natural constraints map and the FEMA
Floodplain Map in relation to the subject property. As noted by the applicant, the
subject site is not included in the City's inventory of known areas of natural hazards.
Staff concurs with the applicant's narrative related to Goal 7 compliance.
APPLICANT'S NARRATIVE RELATED TO GOAL 8:
Goal 8 - Recreation 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.
Findina:
The Willamalane Park and Recreation District is responsible for parks and recreation
planning in the City of Springfield and has developed the Willamalane 20-year Parks
and Recreation Comprehensive Plan. The City of Springfield has adopted this plan as
a refinement of the Metro Plan.
The proposed Refinement Plan amendment will not change the status of any
recreation area, facility or opportunity that has been inventoried and designated by the
Metro Plan or any other relevant facility plans regarding recreational needs. None of
the various studies, inventories, and facilities plans regarding recreational facilities
have designated the subject site for parks and open space in an adopted inventory,
LRP2007-000/2 & ZON2007-000//
26
declared it a significant resource, or slated it for acquisition. The site is already
developed with residential uses and no specific development is proposed with this
amendment. Because the site is not designated for the siting ofrecreational facilities
and the proposed amendment does not affect any recreational facility, inventory of
recreational facilities, or regulation concerning recreational facilities, the amendment
is consistent with Goal 8.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 8:
Finding 22: Staff has consulted the Willamalane 20-year Parks and Recreation
Comprehensive Plan in relation to Goal 8 compliance. The Willamalane 20-year
Parks and Recreation Comprehensive Plan was adopted by the City of Springfield as
part of the Metro Plan's compliance with Goal 8. As noted by the applicant, none of
the various studies, inventories, and facilities plans regarding recreational facilities in
the adopted Willamalane 20-year Parks and Recreation Comprehensive Plan have
designated the subject site for parks and open space in an adopted inventory,
declared it a significant resource, or slated it for acquisition. Staff concurs with the
applicant's narrative related to Goal 8 compliance.
APPLICANT'S NARRATIVE RELATED TO GOAL 9:
Goal 9 - Economic Development: To provide adequate opportunities throughout the
state for a variety of economic activities vital to the health, welfare, and prosperity of
Oregon's citizens.
Findina:
Statewide Planning Goal 9 - Economy of the State, requires communities to inventory,
plan, and zone enough commercial and industrial land to support the diversification
and improvement of the economy. Oregon Administrative Rule 660-009-000 et seq.
(Division 9) establishes the applicability of Goal 9 rules. OAR 660-009-0010(4) states:
"(4) For a post-acknowledgement plan amendment under OAR chapter 660, division 18,
that changes the plan designation of land in excess of two acres within an existing urban
growth boundary from an industrial use designation to a non-industrial us~ designation,
or an other employment use designation to any other use designation, a city or county
must address all applicable planning requirements... JJ
The proposed Refinement Plan Amendment does not amend the Metro Plan or the
General land Use Plan Diagram, and therefore does not affect the Metro Plan's
inventory of employment lands. Furthermore, the amendment affects an area of land
that is smaller than two acres in size. Therefore, pursuant to OAR 660-009-0010(4), the
City is not required to demonstrate conformance with Statewide Planning Goal 9.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 9:
Finding 23: As previously mentioned in this report, the applicant is not proposing a
Post Acknowledgement Plan Amendment (PAPA) that would amend the Metro Plan
or the General Land Use Plan Diagram. The Refinement Plan and Zoning Map
Amendment does not affect the Metro Plan's inventory of employment lands. In
LRP2 00 7-000 /2 & ZON2007-000 //
27
addition, the 2000 Springfield Commercial Lands Study indicates that there is a
shortage of commercial lands within the City of Springfield. Because there is a
shortage of commercial lands within the City; because the Metro Plan allows small
scale office uses within residentially designated properties; and because the
Refinement Plan and Zoning Map Amendment does not affect the Metro Plan's
inventory of employment lands, the proposal is in compliance with Goal 9. Staff
concurs with the applicants narrative related to Goal 9 compliance.
APPLICANT'S NARRATIVE RELATED TO GOAL 10:
Goal 1 0 - Housing: To provide for the housing needs of citizens of the state.
FindinQ:
Goal 10 requires buildable lands for residential use to be inventoried and requires
plans to encourage the availability of adequate numbers of needed housing units at
price ranges and rent levels commensurate with the financial capabilities of Oregon
households. Oregon Administrative Rule 660 Division 8 defines standards for
compliance with Goal 10. OAR 660-008-0010 requires that
Sufficient buildable land shall be designated on the comprehensive plan map to satisfy
housing needs by type and density range as determined in the housing needs projection.
The local buildable lands inventory must document the amount of buildable land in each
residential plan designation.
The comprehensive plan map for Springfield is the Metro Plan General land Use
Diagram. The proposed amendment to the "Q" Street Refinement Plan does notamend
the Metro Plan or its General land Use Diagram and therefore does not affect the
Metro Plan's residential buildable lands inventory. The proposed amendments
conform to Goal 10.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 10:
Finding 24: As previously noted in this report and as stated by the applicant, the
proposed Refinement Plan and Zoning Map amendment does not amend the Metro
Plan or its General Land Use Diagram and therefore does not affect the Metro Plan's
residential buildable lands inventory.
In addition, the City of Springfield 1999 Residential Building Lands Study did not
indicated a shortfall of residential land at the time the study was completed. The City
of Springfield is currently working with a consulting company on a residential land
inventory and land supply analysis. When complete, this study will update the City's
inventory and provide a clear picture of residential land supply.
Staff concurs with the applicant's response to Goal 10 compliance.
LRP2007-000 /2 & ZON2007-000 //
28
APPLICANT'S NARRATIVE RELATED TO GOAL 11:
Goal 11- Public Facilities and Services: To plan and develop a timely, orderly and
efficient arrangement of public facilities and services as a framework for urban and
rural development.
OAR 660-011-0005(7)(a)-(d) Definition of Public Facilities:
(a) Water
(b) Sanitary Sewer
(c) Storm sewer
(d) Transportation
FindinQ:
Statewide Planning Goal 11, in part, ensures that appropriate public facilities and
services are provided within Urban Growth Boundaries in a timely, orderly, and
efficient manner. The Metro Plan and associated facility plans have been
acknowledged to conform to Goal 11 ensuring that public facilities and services are
currently available to the subject site. Contingent upon approval of this amendment,
the applicant will submit appropriate applications for development of the property in a
manner consistent with the existing Metro Plan designation and the proposed
refinement plan designation. During and subsequent to the Development Issues
Meeting (ZON2006-000S0) that preceded this application, City of Springfield staff and
Springfield Utility Board staff indicated which public facilities and services are
adequate, and which will require improvements. Staff indicated that the needed
improvements can be constructed prior to or concurrently with site redevelopment. .
With respect to specific public facilities and services:
Water Service
The site is currently served by 4-inch water lines on the east side of 18th Street and
the north side of "Q" Street. Springfield Fire & Life Safety staff (comments by Fire
Marshal Gilbert Gordon) indicated the system will require additional capacity to
adequately serve the site. Springfield Utility Board staff (Rebecca Templin) indicated
SUB has additional capacity available in the pipe on the east side of 18th Street to
serve the site.
Sanitary Sewer
The sanitary sewer system currently serves the site with extensions from 8-inch pipes
in 18th Street. Springfield Public Works staff (comments by Jeff Paschall) indicated the
sanitary system may require line extensions but it has adequate capacity to serve the
site. Staff indicated any necessary improvements can be worked out and constructed
prior to or concurrently with site redevelopment.
Storm Water Control
The city stormwater system serving the site includes a 1S-inch pipe system at 18th and
"Q" Street and an existing open ditch along 18th Street. Public Works staff (comments
by Matt Stouder) indicated that the City will require either up-sizing the stormwater
LRP2007-000/2 & ZON2007-000//
29
system or on-site detention for specific site development and specific necessary
improvements can be determined at time of Site Plan Review.
The applicant's preliminary storm water plans include stormwater detention on Lot
3600 at the southwestern portion of the subject site. Storm water facilities will be
designed as a component of subsequent land use approvals and constructed prior to
or concurrent with site redevelopment to meet City of Springfield storm water policies
and regulations.
Transportation
The project area is currently served by 18th Street,. which is classified as a local street.
The subject site has street frontage on "Q" Street, a major collector, but does not take
direct access from "Q" Street. City transportation staff has indicated (ZON2006-00050,
comments by Gary McKenney) that the subject site will continue to take access to the
street system exclusively via 18th Street. Staff indicated street improvements will be
necessary to 18th Street to serve the site and specific necessary improvements will be
determined prior to or atthe time of Site Plan Review.
To summarize this response regarding Goal 11, the subject site is inside the Eugene-
Springfield Metropolitan Urban Growth Boundary and City of Springfield city limits.
The adopted and acknowledged Metro Plan and associated facilities plans ensure that
appropriate public facilities and services are or can be extended to the site in a timely,
orderly, and efficient manner. The site is currently served with existing public facilities
and services and, as shown by these findings, these systems can be accessed or
improved as needed before or at the time of site redevelopment. Therefore, this
amendment is in compliance with Goal 11.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 11:
Finding 25: As noted by the applicant, the Metro Plan and associated facility plans
have been acknowledged to conform to Goal 11 ensuring that public facilities and
services are currently available to the subject site. the proposed Refinement Plan
and Zoning Map amendment does not amend the Metro Plan or its General Land
Use Diagram and therefore does not affect the Metro Plan's compliance with Goal
11.
Finding 26: The subject Refinement Plan and Zoning Map amendment applications
have been reviewed by Public Works and Planning Staff to assure that there are
adequate public services to serve the site. These applications comply with Goal 11
because there are urban level public services available to the subject property.
APPLICANT'S NARRATIVE RELATED TO GOAL 12:
Goal 12 - Transportation: To provide and encourage a safe, convenient and economic
transportation system.
Findina:
Goal 12 is implemented through Division 12, OAR 660-012-0000 et. seq. The goal and
division are implemented at the local level by the Eugene-Springfield Metropolitan
LRP2007-000 12 & ZON2007-000 II
30
Area Transportation Plan (TransPlan) which was acknowledged for compliance with
Goal 12 in 2001.
Plan amendments and land use regulation amendments are regulated under OAR 660-
012-0060, the "Transportation Planning Rule." If an amendment significantly affects a
transportation facility, a local government must provide a form of mitigation. OAR 660-
012-0060(1) states:
"A plan or land use regulation amendment significantly affects a transportation facility if it
would:
(a) Change the functional classification of an existing or planned transportation facility
(exclusive of correction of map errors in an adopted plan);
(b) Change standards implementing a functional classification system; or
(c) As measured at the end of the planning period identified in the adopted transportation
system plan:
(A) Allow land uses or levels of development that would result in types or levels of travel
or access that are inconsistent with the functional classification of an existing or planned
transportation facility;
(B) Reduce the performance of an existing or planned transportation facility below the
minimum acceptable performance standard identified in the TSP or comprehensive plan;
or
(C) Worsen the performance of an existing or planned transportation facility that is
otherwise projected to perform below the minimum acceptable performance standard
identified in the TSP or comprehensive plan."
OAR 660-012-0060(1):
With regard to OAR 660-012-0060(1)(a) and (b), the proposed Refinement Plan
Amendment would not change the functional classification of any transportation
facility, nor would it change the standards for implementing the functional
classification system.
With regard to OAR 660-012-0060(1)(c)(A), the proposed Refinement Plan Amendment
would not allow types or levels of uses which would result in levels of travel or access
which are inconsistent with the functional classification of a transportation facility.
The policies of the City of Springfield Development Code and the TransPlan establish
the requested plan designation as appropriate to the classification of the streets
serving the site. Specific requirements for access to those streets will be determined
LRP2007-000 /2 & ZON2007-000 //
3/
through Site Plan reviews and approved only upon demonstration of compliance with
the provisions of the acknowledged comprehensive plan and implementing
regulations.
With regard to OAR 660-012-0060(1)(c)(B) and (C), the performance analyses of
transportation facilities incorporated into the adopted and acknowledged Metro Plan
elements addressing Goal 12 were based on General land Use Plan Diagram
designations. Analysis of residentially designated land includes allowances for
auxiliary uses on 32% of the land so designated. The proposed Refinement Plan
Amendment maintains the current Medium Density Residential designation and
applies the refinement plan designation of General Office as an auxiliary use within the
parameters of 32% auxiliary uses previously included in TransPlan's transportation
model. Therefore, there is no change to the planned transportation system capacity
and it is not significant affected.
Furthermore, the adopted and acknowledged Springfield Development Code stipulates
when a Traffic Impact Analysis may be required. SDC 32.020(1)(e) sets a traffic
generation threshold of 250 vehicle trips per day, below which, all else being equal, a
TIA is not required. The implication is that generating fewer than 250 vehicle trips per
day does not significantly affect the transportation system.
Exhibit 5 (Memorandum Regarding Vehicle Trip Generation), submitted herewith and
incorporated by reference, is based on the current version of the Institute of
Transportation Engineers Trip Generation Informational Report and presents
calculations showing that potential development under the proposed Refinement Plan
Amendment will not add more than 250 vehicle trips per day to the transportation
system. Specifically the trip generation calculations in Exhibit 5 demonstrate the
proposed change will result in an increase of 17 vehicle trips per day as compared to
the current zoning and plan designation and will not significantly affect the
transportation system.
)
For the reasons presented above, pursuant to OAR 660-012-0060(1), the proposed
Refinement Plan Amendments do not significantly affect existing or planned
transportation facilities. Therefore, the City of Springfield can find that the proposal is
consistent with Statewide Planning Goal 12.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 12:
Finding 27: The proposed Refinement Plan and Zoning Map Amendment have been
reviewed by City of Springfield Transportation Division staff, and found to not
significantly affect a transportation facility. The applicant has submitted a technical
memorandum which addresses Goal 12 compliance, which is attached to this staff
report. Additionally, staff has attached an email from Gary McKenney, City of
Springfield Traffic Engineer, which states his conclusion related to Goal 12 review.
Staff concurs with the applicant's written statement related to Goal 12 compliance.
LRP2007-000 12 & ZON2007-000 II
32
.
APPLICANT'S NARRATIVE RELATED TO GOAL 13:
Goal 13 - Energy Conservation: To conserve energy. Land and uses developed on the
land shall be managed and controlled so as to maximize the conservation of all forms
of energy, based upon sound economic principles.
Findina:
The Metro Plan is acknowledged by the Oregon Department of Land Conservation and
Development as conforming to the provisions of Statewide Planning Goal 13. This
application does not amend any component of the Metro Plan, or any regulation
pursuant to that plan, related to Goal 13. Therefore, these amendments are consistent
with the Metro Plan and conform to Statewide Planning Goal 13.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 13:
Finding 28: The proposed Refinement Plan and Zoning Map Amendment do not
affect the Metro Plan's compliance with Goal 13. The applicant is not proposing to
amend any regulation pursuant to Goal 13 compliance of the Metro Plan.
APPLICANT'S NARRATIVE RELATED TO GOAL 14:
Goal 14 - Urbanization: To provide for an orderly and efficient transition from rural to
urban land use.
Findina:
All of the parcels affected by this application are currently within the Urban Growth
Boundary and were annexed into the City of Springfield. The annexation was made in
compliance with an acknowledged comprehensive plan and implementing ordinances,
and established the appropriateness of urban development and the availability of
urban facilities and services. Findings to demonstrate this application and the
proposed Refinement Plan Amendment are consistent with Goal 11 are incorporated
herein by reference. As demonstrated by the referenced findings, urban facilities are
already provided to the site and can be improved as needed for development within
the proposed refinement plan designation. Therefore the amendments are consistent
with Statewide Planning Goal 14.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 14:
Finding 29: As noted by the applicant, all of the parcels affected by this application
are currently within the Urban Growth Boundary and were annexed into the City of
Springfield. All annexations are reviewed for compliance with the Metro Plan and the
Springfield Development Code. As previously mentioned, urban facilities are .
available to the subject site. The proposed Refinement Plan and Zoning Map
Amendment are in compliance with Goal 13.
APPLICANT'S NARRATIVE RELATED TO GOAL 15:
Goal 15 - Willamette River Greenway: To protect, conserve, enhance and maintain the
natural, scenic, historical, agricultural, economic and recreational qualities of lands
along the Willamette River as the Willamette River Greenway.
LRP2 00 7-000 /2 & ZON2007-000 //
33
FindinQ:
The subject site is not within the Willamette River Greenway. Therefore, this goal is
not relevant and the amendment will not affect compliance with Goal 15.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOAL 15:
Finding 30: As noted by the applicant, the subject property is not located within the
Willamette River Greenway. Goal 15 does not apply to the subject Refinement Plan
and Zoning Map Amendment applications.
APPLICANT'S NARRATIVE RELATED TO GOALS 16-19:
Goal 16 through 19: (Estuarine Resources, Coastal Shorelands, Beaches and Dunes,
and Ocean Resources):
FindinQ:
There are no coastal, ocean, estuarine, or beach and dune resources related to the
property or involved in the amendment. Therefore, these goals are not relevant and
the amendment will not affect compliance with Goals 16 through 19.
As shown by these findings and responses, the amendment conforms with the
applicable Statewide Goals and Administrative Rules and therefore satisfies the
approval criteria in SDC Section 8.030(3).
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH GOALS 16-19:
Finding 31: As noted by the applicant, the subject site is not located within any coastal,
ocean, estuarine, or beach and dune resources related area.. Goals 16-19 do not apply
to these Refinement Plan and Zoning Map Amendment applications.
LRP2007-000 /2 & ZON2007-000 //
.34
REFINEMENT PLAN TEXT AND MAP AMENDMENT (LRP2007-00012)
CONCLUSION AND RECOMMENDATION
Staff finds that the request meets the criteria of SDC 8.030. Upon review of the evidence
provided by the applicant, site visits, existing structuresluses and review of the
applicable criteria of approval, staff finds that the applicant's request for a Refinement
Plan Text and Map Amendment is appropriate for the subject property with the following
text amendment (as discussed in the previous findings - Staff's modified text to the
applicant's proposal is underlined):
Page 6 of the Q. Street Refinement Plan:
CRITERIA FOR PLAN DESIGNATIONS:
Commercial:
2) The General Office refinement plan designation may be applied in areas with
existing Residential Metro Plan desicmations without altering the Metro Plan General
Land Use Diagram. To create or expand an area with this refinemenfplan designation,
the following criteria must be met:
e) The area of the designation must be adjacent to a boundary between Residential
and Community Commercial or Major Retail Commercial Metro Plan designations.
f) An area must be at least one acre in size to receive the General Office refinement
plan designation.
g) A General Office designated area shall not be created nor expanded to greater than
1.5 acres in size unless the development area abuts a collector or arterial street.
h) A General Office designated area shall not be created nor expanded greater than 5
acres in size.
Page 8 of the Q. Street Refinement Plan:
POLICIES;
Commercial
9. The General Office refinement plan designation establishes areas to which the GO -
General Office zoning district may be applied. Areas so designated serve as
transition zones, buffering residential development from more intensive commercial
development in areas with commercial plan designations. The General Office
refinement plan designation provides appropriate locations for business and
professional offices such as financial, insurance and real estate services.
Staff recommends the Planning Commission approve the attached Order and forward
the proposed Refinement Plan Amendment Application LRP2007-00012 to the City
Council with a recommendation for adoption with the modified text amendment as
written in this report.
LRP2007-000 /2 & ZON2007-000 //
35
ZONING MAP AMENDMENT
CRITERIA OF APPROVAL - SDC 12.030 et seq.
SDC 12.030 (1) - Quasi-judicial Zoning Map Amendments - The Planning Commission or
Hearings Official may approve, approve with conditions or deny a quasi-judicial Zoning Map
amendment based upon approval criteria (3)(a)-(c) below. The Planning Commission or Hearings
Official shall make the final local decision on all quasi-judicial Zoning map amendments that do
not include a Metro Plan diagram amendment.
SDC 12.030(3) Zoning Map amendment criteria of approval:
(a) Consistency with applicable Metro Plan policies and the Metro Plan diagram
(b) Consistency with applicable Refinement Plans, Plan District maps, Conceptual
Development Plans and functional plans; and
(c) The property is presently provided with adequate public facilities, services and
transportation networks to support the use, or these facilities, services and transportation
networks are planned to be provided concurrently with the development of the property.
NOTE FROM STAFF REGARDING APPLICANT'S ZONING MAP AMENDMENT
NARRA T1VE: The applicant's narrative for the Zoning Map Amendment is similar
to the narrative for the Refinement Plan Amendment, with some minor differences
as related to the zoning map amendment criteria. Rather than be duplicative in
this report, and for ease of review, Staff has attached the applicant's written
narrative in its entirety for reference.
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH SDC 12.030(3)(a):
Finding 32: This criterion is also found in SDC Section 8.030(1) under the Refinement
Plan Amendment criteria. Specific findings related to compliance with Metro Plan
policies and the Metro Plan diagram have been addressed in this report.
Conclusion: The proposed rezone request is consistent with the Metro Plan Text and
Diagram
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH SDC 12.030(3)(b):
Finding 33: As previously mentioned in this report, the subject property is located within
the Q Street Refinement Plan area. The applicant has submitted a concurrent
Refinement Plan Amendment application which, if approved, will provide appropriate text
and Refinement Plan designation for this proposed zone change to GO.
Finding 34: Criteria of approval for consistency with all applicable City of Springfield
functional plans have been previously addressed in this report. As noted in the findings
in this report, the proposal is in compliance with all applicable functional plans.
LRP2007-000/2 & ZON2007-000//
36
Conclusion: Based on the above findings, the proposed zone change is in compliance
with SDC 12.030 (2).
STAFF'S FINDINGS RELATED TO COMPLIANCE WITH SDC 12.030(3)(c):
Finding 35: As previously noted in this report and as stated by the applicant, the subject
properties are currently served by sanitary sewer system via an 8" concrete pipe in the
west side of 18th Street. The storm drain system is in the Q Street right of way and along
the east side of 18th Street. Springfield Utility Board (SUB) indicates it has sufficient
capacity to provide electrical and water service to the site. For electric service, SUB has
overhead primary on the east side of 18th Street. For water service, SUB has a water line
that extends along the east side of 18th Street and the north side of "Q" Street. According
to SUB's water department, the water line currently has three service laterals extending
to the subject site.
Finding 36: The property is served by Springfield Fire and Life Safety.
Finding 37: The site is within Springfield School District 19.
Finding 38: The site is within the Willamalane Parks and Recreation District.
Finding 39: Transportation systems currently provide access to the property. The
subject site takes access from 18th Street which is under City of Springfield jurisdiction.
The subject site is also adjacent to Q Street.
Finding 40: The proposed zone change is from MDR to GO. The subject lot has
existing development on all sides, and is located on Q and 18th Street. As previously
discussed in findings in this report, the proposed zone change will not significantly affect
the existing transportation network. The proposed zone change will not negatively affect
existing public transit service.
Finding 41: Solid waste management service is available at the subject property. The
City and Sanipac have an exclusive franchise arrangement for garbage service inside
the city limits.
Finding 42: The site receives police protection from the City of Springfield, consistent
with service provision throughout the city and with service that is now provided to
adjacent properties.
Finding 43: The City of Springfield Development Services Department provides land
use control for property within the City's jurisdiction.
Finding 44: Qwest and Com cast currently provide telephone and cable communication
service in this area for and an array of wireless companies provide a number of different
communication services. The City has no exclusive franchise arrangements with
telecommunication or wireless companies. The field is competitive and therefore
guarantees a wide selection currently.
LRP2007-000 12 & ZON2007-000 II
37
Conclusion: All key urban facilities and services required for the proposed rezone are
available to the site. Any specific public and private improvement requirements and
utility connection points will be determined when the property is developed. The proposal
meets 12.030(3)(c). .
ZONING MAP AMENDMENT CONDTIONS OF APPROVAL:
SDC12.040
SDC Article 12 allows for the Approval Authority to attach conditions of approval to a
Zone Change request to ensure that the application fully meets the criteria of approval.
The specific language from the code section is listed below:
12.040 Conditions of Approval
The Approval Authority may attach conditions as may be reasonable necessary in order
to allow the Zoning Map amendment to be granted.
Staff have reviewed the Zone Change request and supporting information provided by
the applicant and do not recommend any conditions of approval.
The Planning Commission may choose to apply conditions of approval as necessary to
comply with the Zone Change criteria.
ZONING MAP AMENDMENT (ZON2007-00011) CONCLUSION AND
RECOMMENDATION
Staff finds that the request meets the criteria of SDC 12.030. Upon review of the
evidence provided by the applicant, site visits, existing structuresluses and review of the
applicable criteria of approval, staff finds that the applicant's request for a zone change
from MDR to GO is appropriate for the subject property and recommends the Planning
Commission approve the attached Order and forward the proposed Zoning Map
Amendment Application ZON2007 -00011 to the City Council with a recommendation for
adoption.
LRP2007-000 12 & ZON2007-000 II
38
SATRE
/\~.:s~)(~! j:\.-I"ES
18TH AND "Q" STREET
PROFESSIONAL OFFICE DEVELOPMENT
REFINEMENT PLAN AMENDMENT
APPLICATION
Lane County Assessor's Map 17-03-25-24
Tax Lots 3600, 4700, 4800, 4900 and 5000
Scott McKee
1l0116th Street
Springfield, Oregon 97477
March 2, 2007
1-39
0)
M
I
..-
SATRE ASSOCIATES, P.C.
Planners, Landscape Architects and Environmental Specialists
132 East Broadway, Suite 536, Eugene, Oregon 97401
(541) 465-4721 . Fax (541) 465-4722 . 1-800-662-7094
www.satrepc.com
-
...
III
SATRE
ASSOCIATES
March 2, 2007
18TH AND "Q" STREET PROFESSIONAL OFFICE BUILDING
REFINEMENT PLAN AMENDMENT APPLICATION
WRITTEN STATEMENT
PURPOSE:
The applicant proposes diagram and text amendments to the "Q" Street Refinement Plan. The
requested diagram amendment is specific to the refinement plan designation of five contiguous
properties identified on Lane County Assessor's Map 17-03-25-24 as Tax Lots 3600, 4700,
4800, 4900 and 5000. The applicant owns the five properties. The current refinement plan
designation is Medium Density Residential. The applicant requests re-designation of all five
properties with General Office designation. The requested text amendment establishes policy and
criteria for locating the General Office designation within the refinement plan area. Approval
will facilitate development of an attractive professional office building on currently under-
utilized property at the boundary between a residential neighborhood and a community.
commercial area. This application is submitted concurrently with an application for a
corresponding Zoning Map amendment.
I. GENERAL INFORMATION
Application Team
Owner/Applicant:
Scott McKee
1101 16th Street
Springfield, Oregon 97477 '
Attn: Scott McKee
(541) 683-2180. Fax (541) 485-7183 · scottmckee@qfginc.com
Planner/Landscape Architect/Environmental Specialist!
Applicant's Representative for this application:
Satre Associates, P .C.
132 East Broadway, Suite 536
Eugene, Oregon 97401
. Attn: Richard M. Satre, ASLA, AICP
Tim Shinabarger, MCRP
(541) 465-4721 · Fax (541) 465-4722 · r.satre@satrepc.com
· t.shinabarger@satrepc.com
18th and "Q" Street ProP.s - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
Architect:
Rowe Architecture and Planning, LLC
785 Sand Avenue
Eugene, Oregon 97401
Attn: Albert H. Rowe, CSI, AlA
(541) 484-6820. Fax (541) 431-7016. RoweArchPlanning@comcast.net
Civil Engineer/Surveyor:
Goebel Engineering & Surveying, Inc.
310 Garfield Street
Eugene, Oregon 97402
Attn: Scott Goebel, P.E., P.L.S.
(541) 687-0542. Fax (541) 687-0739 · scott@goebeleng.com
II. LAND USE REQUEST
The applicant requests approval of an amendment to the "Q" Street Refinement Plan to change
the refinement plan designation of the applicant's five contiguous properties at 18th and "Q"
Street. Specifically, the applicant proposes to change the refinement plan designation on the "Q"
Street Refinement Plan Diagram from Medium Density Residential to General Office
designation for all five properties.
A map demonstrating the existing Q Street Refinement Plan plan designation for the subject site
is included herein as Exhibit 1. A map demonstrating the requested plan designation is included
as Exhibit 2.
In discussions with city staff (Development Issues Meeting October 19, 2006, Case Number
ZON2006-00050), staff indicated it will be necessary to add language to the Q Street Refinement
Plan to establish the General Office designation within the refinement plan. Therefore, in
addition to the requested diagram amendment, the applicant proposes refinement plan text
amendments establishing policy and criteria for locating the General Office designation within
the refinement plan area.
The sections and pages in the Q Street Refinement Plan document for which the text
amendments are proposed are CRITERIA FOR PLAN DESIGNATIONS/ Commercial on page
6, and POLICIES/ Commercial on page 8 of the document. The first text amendment will add
Criterion #2 to the Commercial Criteria on page 6 following Commercial Criterion # 1. The
specific wording of the proposed "Commercial Criterion #2/' is:
2) The General Office refinement plan designation may be applied in areas with existing
Medium Density Residential, Community Commercial or Major Retail Commercial
Metro Plan designations without altering the Metro Plan General Land Use Diagram.
To create or expand an area with this refinement plan designation, the following criteria
must be met:
a) The area of the designation must be adjacent to a boundary between Residential and
Community Commercial or Major Retail Commercial Metro Plan designations.
2
18th and "Q" Street prop.es - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
b) An area must be at least one acre in size to receive the General Office refinement
plan designation.
c) A General Office designated area shall not be created nor expanded to greater than
1.5 acres in size unless the development area abuts a collector or arterial street.
d) A General Office designated area shall not be created nor expanded greater than 5,
acres in size.
The second amendment will add Commercial Policy #9 on page 8 following Commercial Policy
#8 and preceding the Residential policies. The specific wording of the proposed "Commercial
Policy #9" is:
9. The General Office refinement plan designation establishes areas to which the GO -
General Office zoning district may be applied. Areas so designated serve as transition
zones, buffering residential development from more intensive commercial development in
areas with commercial plan designations. The General Office refinement plan
designation provides appropriate locations for business and professional offices such as
financial, insurance and real estate services.
In the Q Street Refinement Plan area, General Office use is currently permitted within the
Neighborhood Commercial designation, the Community Commercial designation and, under
specific limited circumstances, the Residential designation. The proposed General Office
refinement plan designation expands the circumstances under which office development can
occur in Residential designations. The purpose is to facilitate neighborhood commercial services
while preventing or limiting impacts to residential areas of more intensive commercial
development.
This written statement applies to the Refinement Plan Amendment application. The applicant is
also submitting a concurrent application for a Zoning Map Amendment to rezone the subject site
to General Office (GO) zoning. The referenced Zoning Map Amendment application is being
submitted concurrently but separately as a stand-alone application. Although each application is
submitted independently and must be reviewed on its own, the applicant requests that the public
process take place concurrently for the two applications. Specifically, the applicant requests that:
· At the level of the Springfield Planning Commission, the required public hearings for
both applications be combined into one public hearing;
· At the level of the Springfield City Council, the required public hearings for both
applications be combined into one public hearing.
Because the Zoning Map Amendment must be consistent with the applicable refinement plan
designation, the applicant requests City Council decision on the proposed Refinement Plan
Amendment precede its decision on the proposed Zoning Map Amendment.
3
SATRE ASSOCIATES, P.C.
Planners, Landscape Architects and Environmental Specialists
132 East Broadway, Suite 536, Eugene, Oregon 9740i
(541) 465-4721 . Fax (541) 465-4722 . 1-800-662-7094
www.satrepc.com
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SATRE
ASSOCIATES
March 2, 2007
18TH AND "Q" STREET PROFESSIONAL OFFICE BUILDING
REFINEMENT PLAN AMENDMENT APPLICATION
WRITTEN STATEMENT
PURPOSE:
The applicant proposes diagram and text amendments to the "Q" Street Refinement Plan. The
requested diagram amendment is specific to the refinement plan designation of five contiguous
properties identified on Lane County Assessor's Map 17-03-25-24 as Tax Lots 3600, 4700,
4800, 4900 and 5000. The applicant owns the five properties. The current refinement plan
designation is Medium Density Residential. The applicant requests re-designation of all five
properties with General Office designation. The requested text amendment establishes policy and
criteria for locating the General Office designation within the refinement plan area. Approval
will facilitate development of an attractive professional office building on currently under-
utilized property at the boundary between a residential neighborhood and a community
commercial area. This application is submitted concurrently with an application for a
corresponding Zoning Map amendment.
I. GENERAL INFORMATION
Application Team
Owner/Applicant:
Scott McKee
1101 16th Street
Springfield, Oregon 97477
Attn: Scott McKee , .
(541) 683-2180. Fax'(541) 485-7183. scottmckee@qfginc.com
Planner/Landscape Architect/Environmental Specialist/
Applicant's Representative for this application:
Satre Associates, P. C. " .
132 East Broadway, Suite 536
Eugene, Oregon 97401
Attn: Richard M. Satre, ASLA, AICP
Tim Shinabarger, MCRP
(541) 465-4721 · Fax (541) 465-4722 · r.satre@satrepc.com
· t.shinabarger@satrepc.com
".
18th and "Q" Street prop.es - Refinement Plai1 Amendment APPlicatiO.
Written Statement -March 2, 2007
III. THE SITE AND EXISTING CONDITIONS
Location
The subject site is located at the northwest comer of the intersection of 18th and "Q" Streets. It
consists of Tax Lots 3600, 4700, 4800,4900 and 5000, all on Lane County Assessor's Map 17-
03-25-24. As noted, the applicant owns all five properties. Street addresses listed for the tax lots
in the Lane Council of Governments Regional Land Information Database include 1865 17th
Street A, 1868 18th Street and 1866 18th Street. Total area for the five properties is approximately
1.17 acres.
Metro Plan Designation
The adopted Eugene-Springfield Metropolitan Area General Plan (Metro Plan) Diagram applies
Medium Density Residential designation to the properties.
Refinement Plan Designation
The applicable refinement plan for the subject site is the Q Street Refinement Plan. The "Q"
Street Refinement Plan Diagram applies Medium Density Residential designation to all
properties included within the subject site.
Zoning
The Springfield Zoning Map places the subject site within the MDR Medium Density
Residential zoning district.
Use
Two of the subject properties (Tax Lots 4700 and 4800) are developed with small single-family
houses. Three lots (Tax Lots 3600,4900 and 5000) are vacant.
Context
The subject site is located just north of the westbound on-ramp for the Eugene-Springfield
Highway and is separated from the Highway by the "Q" Street right-of-way. The site is one
block west of the intersection of the Eugene-Springfield Highway with Mohawk Boulevard/19th
Street. Properties east of the subject site are zoned Community Commercial and designated
Commercial on the Metro Plan and refinement plan. Properties behind (west of) and north of the
subject site are zoned and designated Medium Density Residential.
The subject properties have approximately 246.5 feet of street frontage on 18th Street and 170
feet of street frontage on "Q" Street. The City of Springfield Map of Streets by Functional Class
identifies 18th Street as a local street and "Q" Street as a collector street.
The properties are in an area determined to be outside of the 500-year floodplain, according to
the National Flood Insurance Program Flood Insurance Rate Map #41039Cll53F. The properties
are not in areas identified in the Local and National Wetland Inventory Map. The Springfield
Drinking Water Protection Overlay Map indicates at least part of the site appears to be within the
I-year Time of Travel Zone for the 16th and "Q" Street Well field.
4
18th and "Q" Street ProP.s - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
Adjacent Uses
To the south, "Q" Street borders the south side of the subject site and the Eugene-Springfield
Highway is immediately south of "Q" Street, creating a substantial swath of right-of-way more
than 400 feet wide dividing the subject site from other development to the south.
Properties in Medium Density Residential zoning and plan designation are adjacent to the west
and north sides of the subject site.
Properties adjacent to the east side of the subject site are in Community Commercial zoning.
Commercial uses located adjacent to and northeast of the subject site on the opposite side of 18th
Street include an auto repair shop and a veterinarian's office. Commercial uses located adjacent
to and east of the subject site on the opposite side of "Q" Street include a Dari-Mart store and a
pizza restaurant.
Utilities
Utility data from the City of Springfield and Springfield Utility Board (SUB) show the subject
properties are currently served by sanitary sewer system via an 8" concrete pipe in the west side
of 18th Street. The storm drain system is in the "Q" Street right-of-way and along the east side of
18th Street. Springfield Utility Board (SUB) indicates it has sufficient capacity to provide
electrical and water service to the site. For electric service, SUB has overhead primary on the
east side of 18th Street. For water service, SUB has a water line that extends along the east side of
18th Street and the north side of "Q" Street. The water line currently has three service laterals
extending to the subject site.
IV. PROPOSED USE/ PROGRAM
Contingent on. approval of the current application and other applications as required, the
applicant is preparing to submit applications to construct a professional office building on the
subject site. The office building as envisioned would be located at the front of the subject site;
parking would be located at the rear and north side of the site, separated from adjacent residential
development by landscaped buffer as per screening standards in the Springfield Development
Code. The building as envisioned will consist of two stories with a total of approximately 15,600
square feet, and the design will be considerate of the neighbors and of the characteristics of the
neighborhood, which includes residential homes and community commercial development. The
existing residential dwellings will be removed.
Article 18 of the Springfield Development Code identifies the GO General Office district as,
designed to be compatible with residential neighborhoods. SDC 18.01 0(4) identifies GO General
Office zoning as intended to encourage appropriate office development and designed to be a
transition zone providing a buffer between residential and more intensive Community
Commercial uses. The Schedule of Use Categories in Commercial districts (SDC 18.020)
permits office buildings.
The subject properties are located on the outer edge of a large residential neighborhood next to
an area of Community Commercial zoning. This is the type of transitional area specified in SDC
18.010(4)'s description of General Office zoning, which describes it as serving as a buffer
between residential and Community Commercial zoning. The limited list of uses permitted in the
5
18th and "Q" Street ProP.s - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007 '
General Office zone (primarily restricted to office use) appears compatible with the character of
the residential neighborhood on one side of the subject site and the commercial area on the other.
Section V of this Written Statement demonstrates that the requested Plan amendment satisfies
the approval criteria found in the Springfield Code Section SDC 8.030.
V. APPLICABLE CRITERIA AND PROPOSED FINDINGS
Springfield Code Section SDC 8.030 requires an evaluation of any Refinement Plan Amendment
to determine whether the amendment is consistent with the following criteria. Criteria are shown
in bold and italic text.
SDC8.030 CRITERIA. In reaching a decision on these actions, the Planning Commission
and the City Council shall adoptfindings which demonstrate conformance with thefollowing:
(1) The Metro Plan;
(2) Applicable State statutes.
(3) Applicable State-wide Planning Goals and Administrative Rules.
Findings:
Regarding SDC 8.030(1), conformance with the Metro Plan, the following proposed findings are
organized in two parts: conformance with the Metro Plan Diagram, and conformance with Metro
Plan policies.
Conformance with the Metro Plan Diagram
The proposed refinement plan designation will allow the limited application of the General
Office land use zone in certain areas designated on the Metro Plan Diagram as Medium Density
Residential. Limited office developments can be approved as auxiliary uses in residentially
designated areas. The Metro Plan's Residential designation description assumes approximately
32 percent of residential areas will be dedicated to auxiliary uses. A portion of the Metro Plan
text specific to residential land use designation is relevant to the present application and reads as
follows:
"Using gross acres, approximately 32 percent of the area is 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." (Chapter II-G, Metro Plan Diagram, Land Use
Designations, Residential, p. II-G-3)
The 32 percent available for auxiliary use applies to all residentially designated gross acreage
within the Urban Growth Boundary (UGB). The proposed Refinement Plan Amendment will re-
designate 1.14 acres. An analysis of the precise current allocation of residential auxiliary uses in
the metropolitan area is not warranted for a proposal of this scope. According to the Metro Plan
text in Chapter G, Metro Plan Diagram, p. II-G-1, "When local plans include densities or land
6
18th and "Q" Street pro.es - Refinement Plan Amendment APPlicatio.
Written Statement -March 2, 2007
use allocations significant on a metropolitan scale, their adoption requires analysis of
metropolitan implications, followed by amendments to the Metro Plan, when necessary." The
consultant team for this application used GIS data to calculate the amount of land within the Q
Street Refinement Plan area the Metro Plan Diagram designates for residential use. Of the
Refinement Plan's approximately 479 acres, the Metro Plan applies Residential designation to
approximately 404 acres. The designation is broken down as shown in Table 1, below.
Table 1. Metro Plan Land Use Designation in the "Q" Street Refinement Plan Area
Metro Plan Designation Acreage
Commercial 75.14
Low Density Residential 18.12
Medium Density Residential 311.73
High Density Residential 74.18
Total Residential 404.03
Total Refinement Plan Area 479.17
(Source: Satre Associates, P.C" using Lane Council of Governments GIS data)
The proposed Refinement Plan Amendment will shift 1.17 acres of Metro Plan residentially
designated land from principal use to auxiliary use. In terms of impact on the area encompassed
by the "Q" Street Refinement Plan Diagram, 1.17 acres is less than three-tenths of 1 percent
(0.29%) of the 404 acres with Residential Metro Plan designation within the refinement plan area
itself. The amendment is not significant on a metropolitan scale.
A comparison of General Office regulations with Neighborhood Commercial regulations reveals
many similarities. An important similarity is that allowed uses in General Office and
Neighborhood Commercial create only limited impacts on residential properties. As shown in the
Schedule of Use Categories for Commercial zoning types in the Springfield Development Code
(SDC Section 18.020), the list of permitted uses in General Office zoning is much more
restricted and allows fewer uses compared with the list of permitted uses in Neighborhood
Commercial zoning.
The proposed amendment will expand areas for neighborhood commercial services as
anticipated in the Metro Plan's allowance for auxiliary uses. In the entire "Q" Street Refinement
Plan Land Use Diagram, only one property is currently designated Neighborhood Commercial
and no properties are designated General Office. This indicates a need for General Office
development in the Refinement Plan area. The one property currently designated Neighborhood
Commercial, located at 2454 10th Street adjacent to Hayden Bridge Road (Map and Tax Lot 17-
03-26-12, 00100), has an area of approximately 0.37 acres. The Metro Plan Diagram applies
residential designation to the referenced property, indicating that its Neighborhood Commercial
use is an auxiliary use within the Metro Plan's residentially designated acreage.
The land area that is the subject of the current proposal for General Office re-designation is small
in relationship to the amount of residentially designated land within the "Q" Street Refinement
Plan area, 1.17 acres out of 404. The proposed Refinement Plan re-designation does not detract
significantly from the land available for the primary residential use within the refinement plan
area's 404 acres of Metro Plan residential designation, let alone within the entire Metropolitan
area's residential land inventory. Because the proposed refinement plan re-designation provides
office services to neighborhood residents and other city residents while permitting a narrow
7
18th and "Q" Street prop.es - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
range of uses compatible with adjacent residential uses, the re-designation provides an auxiliary
use in the Metro Plan's residential area as provided for in the Metro Plan.
This proposed amendment establishing and applying the General Office refinement plan
designation creates the context within which these auxiliary uses will conform to the refinement
plan, as required by the Metro Plan. The concurrent application for Zoning Map Amendment
applies a zoning district that permits these uses.
The proposed auxiliary uses will be compatible with the Springfield Development Code,
specifically the establishment clause for the GO General Office District, SDC Section 18.0 W( 4):
"The GO district is intended to encourage appropriate office development and to implement
neighborhood refinement plans. This district is designed to be a transition zone, providing a
buffer between residential and more intensive commercial development at the boundaries of
a Community Commercial or Major Retail Commercial designation. A development area of
at least one acre shall be required."
The subject site is at such a transition site, within a Metro Plan residential designation, at the
edge of a residential neighborhood, between residentially designated and zoned land to the west
and commercially designated and zoned land to the east.
Other local controls in the Springfield Development Code will apply to future development of
the property. No conflicts with those controls are anticipated, and none arise necessarily from the
amendment as it is written.
Because the proposed amendments facilitate auxiliary uses similar in nature and impact to the
Neighborhood Commercial uses anticipated by the Metro Plan, and these uses will be compatible
with refinement plans, zoning ordinances, and other local controls for allowed uses in residential
neighborhoods, the General Office refinement plan designation can be applied to land designated
Residential in the Metro Plan. Allowed auxiliary uses will not contradict or conflict with the
purposes and requirements of the subject site's current Metro Plan designation. Therefore, the
proposed Refinement Plan Amendments conform with the Metro Plan Diagram.
Conformance with Metro Plan Policies
Metro Plan Chapter III, Specific Elements
A. Residential Land Use and Housing Element
Policy A.22. Expand opportunities for a mix of uses in newly developing areas and existing
neighborhoods through local zoning and development regulations.
Finding:
The proposed Refinement Plan Amendments will expand opportunities for a mix of uses in the
"Q" Street neighborhood. They will make it possible to apply the General Office zoning district
to a site with a Residential Metro Plan designation. Springfield Development Code, Section
18.01 0(4) explains the purpose of the district:
8
18th and "Q" Street prop.es - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
"(4) GO GENERAL OFFICE DISTRICT. The GO District is intended to encourage
appropriate office development and to implement neighborhood refinement plans. This
district is designed to be a transition zone, providing a buffer between residential and more
intensive commercial development at the boundaries of a Community Commercial or Major
Retail Commercial designation. A development area of at least one acre shall be required. "
The regulations and standards of the General Office district will provide greater flexibility than
those of the existing residential zone. The amendments will permit establishing the zone in the
transition area between residential development (west of 18th Street) and more intensive
community commercial development (east of 18th Street). By making it possible to apply the
GO zoning district to transitional locations within the area of the refinement plan, this proposed
Refinement Plan Amendment facilitates mixed uses in an existing neighborhood and fulfills the
intent of Metro Plan Policy A.22.
B. Economic Element
Policy B.6. Increase the amount of undeveloped land zoned for light industrial and commercial
uses correlating the effective supply in terms of suitability and availability with the projections of
demand.
Findings:
The subject site has characteristics that make it suitable for low-impact commercial uses but
unsuitable for intensive community commercial use. It has frontage on "Q" Street, a Major
Collector, and is adjacent to an interchange on the Eugene-Springfield Highway (1-105). It is
adjacent to Community Commercial designation and also adjacent to Residential designation,
and therefore fits the intention of SDC 18.01 0(4) for the location of General Office zoning.
The same adjacency to a state highway intersection that makes this site suitable for low-impact
commercial uses compromises its value for residential purposes. As mentioned above, the
subject site has significant exposure on its south and east sides to the Eugene-Springfield
Highway (1-105) and its westbound on-ramp. This results in undesirable characteristics of view,
privacy, dust and noise. Specifically, this two-lane on-ramp is less than 100 feet from the subject
site, separated from it only by the "Q" Street right-of-way with no intervening buffer. These
characteristics were noted in the "Q" Street Refinement Plan document in its "Findings" section,
specifically in the Transportation Findings #4 and #7 on page 5 of the refinement plan document:
#4): There is little or no sound buffering between the Eugene-Springfield Highway and the
residential areas within the Q Street area.
#7): There is little or no mitigation of dust between the Eugene-Springfield Highway and the
Q Street residential area. (Q Street Refinement Plan Transportation Findings, p. 5)
These characteristics diminish the site's attractiveness as a location for residential housing and
limit its development potential in its current zoning with the result that three lots are vacant and
the remaining two lots are underdeveloped. Lot 4700 has a 912 square foot house (counting attic
space) and Lot 4800 has a 1,092 square foot house while Lots 3600, 4900and 5000 are vacant.
9
18th and"Q" Street pra'es - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
With its attractiveness as a location for housing diminished by its adjacency to the state highway,
the site's suitability for other uses should be considered.
Regarding effective supply and projections of demand, the City of Springfield adopted the
Springfield Commercial Lands Study, February 2000. It contains the following passages:
"A detailed supply/demand analysis revealed a need for a minimum of 255 acres of
commercial land to the year 2015 based on an absorption rate of 17 acres per year.
Currently, there are 85 acres of vacant and 12 acres of redevelopable commercial land
within the City's UGB, a total of 97 acres. " (Finding, page ii.)
"Given-the patterns of development) the CAC [Citizen Advisory Committee) asserts the
vacant land inventory represents no more than a two-year supply, and noted that there is a
need fiH a supply of both larger and smaller sites to provide choice, diversity and economy in
the marketplace. Given the current shortage of larger sites, rezoning or annexation may be
necessary jor this to occur. " (Significant Recommendation, page iv.)
"Policy I-A: Maintain a mixed supply of large and small commercial sites through strategies
such as rezoning or annexation to serve Springfield's future population." (Key Policy,
page v.)
Clearly, there is a critical need for more commercial land. The proposed Refinement Plan
Amendments would facilitate development of the subject site for commercial purposes. It would
do so at the expense of potential residential development on land that is, at best, only marginally
suited for the purpose. The amendments will conform to the recommendations and policies of the
Springfield Commercial Lands Study.
To summarize, the amendment affects a site that:
. consists of undeveloped and underdeveloped land
. is ill-suited for its current designation
. is well suited as a transition from residential to more intense commercial use
· provides critically needed land available for commercial uses. .
By applying the appropriate refinement plan designation, the amendments increase the amount of
suitable land available for commercial uses, and move toward a better equilibrium of supply and
demand. Therefore, they conform with Policy B.6.
Policy B.22. Review local ordinances and revise them to promote greater flexibility for
promoting appropriate commercial development in residential neighborhoods.
Findings:
The current "Q" Street Refinement Plan and Land Use Diagram do not explicitly allow General
Office zoning in areas with Residential Metro Plan designations. The proposed amendments
would create policy and criteria in the refinement plan to introduce office development as an
auxiliary use in Metro Plan residential designation at transitional areas without permitting more
intensive Community Commercial levels of development. A zoning and plan designation of
10
18tl: and "Q" Street pro.es - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
Community Commercial would not be appropriate for areas such as the subject site because in
worst case scenarios Community Commercial uses could produce traffic patterns and volumes,
noise and other impacts detracting from the residential character of the neighborhood. By
contrast, the requested GO General Office refinement plan designation promotes lower impact
commercial development and provides a buffer between residential and more intensive
commercial development.
The proposed Refinement Plan Amendment provides opportunities in transitional areas. for an
intermediate level of development that expands commercial opportunities at a scale appropriate
for residential neighborhoods and the amendment is therefore consistent with Economic Element
Policy B.22.
Conformance with Refinement Plan Policies
Internal consistency of the Refinement Plan is not explicitly a criterion for a Refinement Plan
Amendment. However, because a refinement plan builds on the Metro Plan and, for a site
specific area, serves as a comprehensive planning document, the requirement of conformance
with the Metro Plan might be interpreted as requiring Refinement Plan Amendments to maintain
consistency within a refinement plan. Furthermore, the "Q Street Refinement Plan" includes
criteria for the site specific application of certain plan designations. To ensure that there are
sufficient bases and guidance for the application of the "Q Street Refinement Plan" General
Office designation, and to ensure that the proposed Diagram Amendment is consistent with the
Refinement Plan, this application requests approval of "Q Street Refinement Plan" text
amendments as follows:
On page 6, following Commercial Criterion #1, add Criterion #2:
2) The General Office refinement plan designation may be applied in areas with existing
Medium Density Residential, Community Commercial or Major Retail Commercial
Metro Plan designations without altering the Metro Plan General Land Use Diagram.
To create or expand an area with this refinement plan designation, the following criteria
must be met:
a) The area of the designation must be adjacent to a boundary between Residential and
Community Commercial or Major Retail Commercial Metro Plan designations.
b) An area must be at least one acre in size to receive the General Office refinement
plan designation.
c) A General Office designated area shall not be created nor expanded to greater than
1. 5 acres in size unless the development area abuts a collector or arterial street.
d) A General Office designated area shall not be created nor expanded greater than 5
acres in size.
And on page 8, following Commercial Policy #8, add Policy #9:
11
18th and "Q" Stre:t pra'es - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
9. The General Office refinement plan designation establishes areas to which the GO -
General Office zoning district may be applied. Areas so designated serve as transition
zones, buffering residential development from more intensive commercial development in
areas with commercial plan designations. The General Office refinement plan
designation provides appropriate locations for business and professional offices such as
financial, insurance and real estate services.
Upon approval, these text amendments provide policies and criteria with which the proposed
Refinement Plan Diagram Amendment conforms.
(2) Aoolicable State statutes.
The state statutes that apply to this amendment include Oregon Revised Statute (ORS) 197.200,
which stipulates what is required of refinement plans, and ORS 197.250, which requires
comprehensive plans to be in compliance with the Statewide Planning Goals. ORS 197.200(3)
states:
"(3) A refinement plan and associated land use regulations adopted prior to September 9,
1995, may qualify as a refinement plan if the local government holds a public hearing to
gather public comment and decides to adopt the plan as a refinement plan under this
section. "
The Q Street Refinement Plan was adopted March, 1987. The public record does not indicate
whether a public hearing was held subsequently to adopt the plan under ORS 197.200(3).
ORS sections 197.200(2)(a)-(d) stipulate that a refinement plan shall:
(a) Establish efficient density ranges, including a minimum and a maximum density for
residential land uses;
(b) Establish minimum and maximum floor area ratios or site coverage requirements for
nonresidential uses;
(c) Be based on a planning process meeting statewide planning goals; and
(d) Include land use regulations to implement the plan.
To the extent that the "Q" Street Refinement Plan is subject to and meets these requirements, the
following is true of the proposed amendments: These amendments establish a new plan
designation within the refinement plan for a use that is already permitted in the refinement plan
area under other plan designations. The amendments do not affect the list of allowed uses within
the refinement plan area. They do not affect density ranges for land uses. They do not affect floor
area ratios or site coverage requirements for nonresidential uses. They do not affect the planning
process upon which the refinement plan is based. Finally, the amendments do not affect the land
use regulations that implement the plan. Therefore, the amendment complies with ORS 197.200.
ORS 197.250 requires comprehensive plans to be in compliance with the Statewide Planning
Goals. The Metro Plan is the applicable comprehensive plan. Because no amendment is proposed
to the Metro Plan or the General Land Use Diagram, the requested Refinement Plan Amendment
does not affect compliance of the comprehensive plan with the statewide goals. However, to
12
18th and "Q" Street prop.s - Refinement Plan Amendment APPlicatio.
Written Statement -March 2, 2007
whatever extent these Goals may apply to the proposed Refinement Plan Amendments,
conformance is addressed in the following proposed findings regard~ng SDC 8.030(3), which are
herein incorporated by reference.
(3) Avvlicable State-wide Planninf! Goals and Administrative Rules.
The "Q" Street Refinement Plan and Land Use Diagram do not constitute a refinement plan
meeting the requirements of ORS 197.200, and therefore are not part ofthe Metro Plan. Because
amendments to the "Q" Street Plan do not affect the Metro Plan, they do not constitute a Post
Acknowledgement Plan Amendment (P AP A) and therefore application of the Statewide
Planning Goals is not required. However, to the degree that the Statewide Planning Goals may
be relevant, the following responses to the requirements of those goals are offered.
Goal 1 - Citizen Involvement: To develop a citizen involvement program that insures the
opportunity for citizens to be involved in aU phases of the planning process.
Finding:
The City of Springfield has an acknowledged citizen involvement program and an acknowledged
process expressed in the Springfield Development Code for securing citizen input on all
proposed Refinement Plan Amendments. It insures the opportunity for citizens to be involved in
all phases of the planning process and sets out requirements for such involvement. The
amendments proposed do not amend the acknowledged citizen involvement program. The
process for adopting these amendments complies with the requirements of the citizen
involvement provisions.
The Metro Plan contains an acknowledged citizen involvement program satisfying Goal 1. The
citizen involvement program is in Metro Plan Chapter III, pp. III-K-1 to III-K-4. The proposed
amendment complies with and does not affect or amend the citizen involvement element in the
Metro Plan.
The Refinement Plan Amendment is subject to the public notification and public hearing
processes provided for Type IV application procedures as stipulated in SDC 3.100(1) through
(7), which, along with the remainder of the Code and with Statewide Goals and state statutes,
provide the provisions for citizen involvement.
The City's acknowledged program for citizen involvement, which includes public notice, public
hearings at the level of the planning commission and city council, notification of decision and
notification of the right of appeal, provides citizens with the opportunity to review the proposed
amendment and make recommendations in written and oral testimony. These acknowledged
citizen involvement provisions afford ample opportunity for citizen involvement consistent with
Goal 1.
For the reasons cited, including the Metro Plan's and the City of Springfield's acknowledged
programs for citizen involvement, the amendment conforms with Goal 1.
13
18th and "Q" Street pro.es - Refinement Plan Amendment APPlicatiott
Written Statement --March 2, 2007
Goal 2: Land Use Planning: To establish a land use planning process and policy framework as
a basis for all decision and actions related to use of land and to assure an adequate factual base
for such decisions and actions.
Finding:
Goal 2 requires that plans be coordinated with the plans of affected governmental units and that
opportunities be provided for review and comment by affected governmental units. In order to
comply with the Goal 2 coordination requirement, the City will be responsible for coordinating
the adoption of this amendment by providing notice to all affected governmental units and
responding in its findings to the legitimate concerns of affected governmental units. There are no
Goal 2 Exceptions required.
The Eugene/Springfield Metro Area General Plan (Metro Plan), the Springfield Code, and the
Statewide Planning Goals and applicable state statutes and administrative regulations, provide
policies and criteria for the evaluation of plan amendments. Compliance with these measures
assures an adequate factual base for approval of the amendment. As demonstrated in findings
provided in this document, the amendment is consistent with the Metro Plan, the "Q" Street
Refinement Plan, the Springfield Development Code, applicable state statutes and the Statewide
Planning Goals. Therefore, the amendment conforms with Goal 2.
Goal 3 - Agricultural Land: To preserve and maintain agricultural lands.
Finding:
Goal 3 applies to lands that are designated Agricultural. This amendment is for property located
within the city limits of Springfield and does not affect land designated for agricultural use.
Therefore, Goal 3 is not applicable to the amendment.
Goal 4 - Forest Land: To conserve forest lands by maintainihg the forest land base and to
protect the state's forest economy by making possible economically efficient forest practices that
assure the continuous growing and harvesting of forest tree species as the leading use on forest
land consistent with sound management of soil, air, water, and fish and wildlife resources and to
provide for recreational opportunities and agriculture.
Finding:
Goal 4 applies to lands that are designated for forest use. This amendment is for property located
within the city limits of Springfield and does not affect land designated for forest use. Therefore,
Goal 4 is not applicable to the amendment.
Goal 5 - Open Spaces, Scenic and Historic Area, and Natural Resources: To conserve open
space and protect natural and scenic resources.
Finding:
Oregon Administrative Rule 660-023-000 through 660-000-250 establish procedures and criteria
for inventorying and evaluating Goal 5 resources and for developing land use programs to
conserve and protect significant Goal 5 resources.
Pursuant of Goal 5, the City of Springfield has adopted the following documents:
14
18th and "Q" Street pro.es - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
. Eugene-Springfield Metropolitan Area General Plqn, revised 2004
. City of Springfield, Local and National Wetlands Inventory Map, December 2005
. City of Springfield Natural Resource Study, adopted, November 2005
Oregon Administrative Rule 660-023-0250 establishes the applicability of Goal 5 rules to Post
Acknowledgement Plan Amendments (P AP A), and specifies certain procedures and
requirements for local governments to follow in the adoption or amendment of all plan or land
use regulations pertaining to Goal 5 resources. However, the requested Refinement Plan
Amendment does not affect the Metro Plan nor the General Land Use Diagram, and therefore
cannot constitute a PAPA. Compliance with Goal 5 need not be addressed. Nonetheless, to
whatever extent the procedures and requirements of OAR 660-023-0250 should be addressed in
considering the proposed Refinement Plan Amendments, the following findings are presented.
Oregon Administrative Rule 660-023-0250 states:
"(3) Local governments are not required to apply Goal 5 in consideration of a PAPA unless
the PAPA affects a Goal 5 resource. For purposes of this section, a PAPA would affect a
Goal 5 resource only if:
(a) The PAPA creates or amends a resource list or a portion of an acknowledged plan or
land use regulation adopted in order to protect a significant Goal 5 resource or to
address specific requirements of Goal 5;
(b) The PAPA allows new uses that could be conflicting uses with a particular significant
Goal 5 resource site on an acknowledged resource list; or
(c) The PAPA amends an acknowledged UGB and factual information is submitted
demonstrating that a resource site, or the impact areas of such a site, is included in the
amended UGB area."
The following discussion will demonstrate that the proposed Refinement Plan Amendment does
not raise any issues that would require the City of Springfield to apply Goal 5.
Firstly addressing OAR 660-023-250(a): The changes sought by this application do not create or
amend a resource list or any portion of an acknowledged plan or land use regulation adopted in
order to protect a significant Goal 5 resource on the subject site.
Secondly addressing OAR 660-023-250(b): The changes sought by this application will not
allow new uses that could conflict with a significant Goal 5 resource site. There are no
significant Goal 5 resources on the subject site. None of the variol,ls studies, inventories,
refinement plans, and facilities plans list this specific site as a significant resource, apply a
Goal 5 resource overlay, or otherwise regulate or limit the redevelopment of this site as a Goal 5
resource.
No Goal 5 resources are identified on or near the property on the City of Springfield Local and
National Wetlands Inventory Map. The closest Goal 5 resource identified by the City of
15
18th and "Q" Street prop.s - Refinement Plan Amendment APPlicatio.
Written Statement -March 2, 2007
Springfield Natural Resource Study Report is the "Q" Street Ditch, a portion of which is located
approximately 400 feet to the south of the subject site at its closest point. It is separated from the
subject site by the right-of-way of "Q" Street, a paved street classified as a collector street, and
by the right-of-way of the Eugene-Springfield Highway, also known as State Highway 126 (I-
105), which includes at least six paved lanes, including its eastbound exit ramp and its
westbound entrance ramp. The Goal 5 Recommendation in the City of Springfield Natural
Resource Study Report reads as follows:
"Limit conflicting uses and employ low impact development practices when developing
within 150 feet of the watercourse. The "Q" Street Ditch is protected by a 50-foot
development setback and site plan review standards described in 31.240 of the Springfield
Development Code. No additional setbacks are necessary." 1
A 50-foot development setback is required from the "Q" Street Ditch under stormwater
provisions of the Springfield Development Code. In addition, as stated in the text of the Natural
Resource Study Report, the "Q" Street Ditch is associated with the "Q" Street Floodway. The
"Q" Street Floodway is a tributary to a water quality limited water course, the Willamette River,
and is protected by a 50-foot setback and a site plan review requirement.
Because the resource impact area as it is defined by the City of Springfield Natural Resource
Study Report is not encroached upon by the subject site, the uses allowed by the proposed
amendment will not conflict with a Goal 5 resource.
Addressing OAR 660-023-250(c): The changes sought by this application do not amend the
acknowledged City of Springfield Urban Growth Boundary. Therefore, with regard to this
criterion, the City is not required to apply Goal 5.
Oregon Administrative Rule 660-023-0250 "Applicability" stipulates that local governments are
required to apply Goal 5 when considering a Post Acknowledgment Plan Amendment if the
amendment affects a Goal 5 resource. For the purposes of that rule, the section lists three
circumstances (OAR 660-023-0250(3)(a), (b), and (c) quoted above) under which a Post
Acknowledgment Plan Amendment would affect a Goal 5 resource. As demonstrated by these
findings, none of the three circumstances are raised by the proposed amendments, and the
amendments will not affect a Goal 5 resource. The City of Springfield is not required to apply
Goal 5 and can, therefore, find that the action requested by this application is consistent with
Statewide Planning Goal 5.
Goal 6 - Air, Water and Land Resources Quality: To maintain and improve the quality of the
air, water and land resources of the state.
Finding:
The purpose of Goal 6 is to maintain and improve the quality ofthe air, water and land resources
of the State. Consistency with Goal 6 requires that development comply with applicable state and
federal air and water quality standards and related local policies. Additionally, as demonstrated
I City of Springfield Natural Resource Study Report, October 2005. p. 213.
16
18th and "Q" Street proples - Refinement Plan Amendment APPlicatio. .
Written Statement -March 2, 2007
in findings regarding Goal 11 incorporated herein by reference, urban facilities are provided, in
part, to protect air, water and land resources.
The adopted and acknowledged Metro Plan elements addressing Goal 6 are based on Metro Plan
General Land Use Diagram designations. The proposed Refinement Plan Amendments do not
amend the Metro Plan, its General Land Use Plan Diagram, any of the Goal 6 related policies of
the Metro Plan, nor do they amend the Regional Transportation Plan, the Springfield
Development Code, other applicable Goal 6 policies, or any regulations implementing those
policies.
Nothing in the proposal, the character of the site or potential uses indicates that the amendments
would further compromise air, water and land resources. Future development of the site must
necessarily be in conformance with local, state and federal law including applicable elements of
the Springfield Development Code. Because no specific development or physical change to the
site is proposed by this amendment, the project's compliance with applicable state, federal and
local air and water quality standards and local policies is indeterminant, and review is deferrable
until development permits are required.
The evidence supports a reasonable expectation that future development resulting from the
proposed Refinement Plan Amendments will be consistent with Goal 6 requirements. Therefore,
the City of Springfield can reasonably expect that future development under the proposal will
comply with applicable state and federal environmental quality standards. The proposed
Refinement Plan Amendments are consistent with Goal 6.
Goal 7 - Areas Subject to Natural Disasters and Hazards: To protect life and property from
natural disasters and hazards.
Finding:
Goal 7 requires that development subject to damage or potential loss of life not be planned or
located in known areas of natural hazards and disasters without appropriate safeguards. The goal
also requires that plans be based on an inventory of known areas of natural disaster hazards
(floods, landslides, earthquakes, wildfires and other related hazards).
The subject site is not included in the City's inventory of known areas of natural hazards. The
Oregon Department of Geology and Mineral Industries inventory of landslide areas does not
identify or inventory the subject site. The subject site is outside of the 500-year floodplain,
according to the National Flood Insurance Program Flood Insurance-Rate Map that encompasses
the site (Map #41039CI153F). The proposed amendment does not amend, remove or exempt
compliance with any other regulations or standards that reduce risk to people and property from
natural hazards.
The proposed amendment does not affect any additional geographic area other than the subject
site. No specific development is proposed with this Refinement Plan Amendment. For the
reasons set forth the amendment is in compliance with Goal 7.
17
18th and "Q" Street prop.s - Refinement Plan Amendment APPlicatio.
Written Statement -March 2, 2007
Goal 8 - Recreation Needs: To satisfY the recreational needs of the citizens of the state and
visitors and, where appropridte. to. provide for the siting of necessary recreational facilities
including destination resorts.
Finding:
The Willamalane Park and Recreation District is responsible for parks and recreation planning in
the City of Springfield and has developed the Willamalane 20-year Parks and Recreation
Comprehensive Plan. The City of Springfield has adopted this plan as a refinement of the Metro
Plan.
The proposed Refinement Plan amendment will not change the status of any recreation area,
facility or opportunity that has been inventoried and designated by the Metro Plan or any other
relevant facility plans regarding recreational needs. None of the various studies, inventories, and
facilities plans regarding recreational facilities have designated the subject site for parks and
open space in an adopted inventory, declared it a significant resource, or slated it for acquisition.
The site is 'already developed with residential uses and no specific development is proposed with
this amendment. Because the site is not designated for the siting of recreational facilities and the
proposed amendment does not affect any recreational facility, inventory of recreational facilities;
or regulation concerning recreational facilities, the amendment is consistent with Goal 8.
Goal 9 - Economic Development: To provide adequate opportunities throughout the state for a
variety of economic activities vital to the health, welfare, and prosperity of Oregon's citizens.
Finding:
Statewide Planning Goal 9 - Economy of the State, requires communities to inventory, plan, and
zone enough commercial and industrial land to support the diversification and improvement of
the economy.. Oregon Administrative Rule 660-009-000 et seq. (Division 9) establishes the
applicability of Goal 9 rules. OAR 660-009-001 0(4) states:
"(4) For a post-acknowledgement plan amendment under OAR chapter 660, division 18, that
changes the plan designation of land in excess of two acres within an existing urban growth
boundary from an industrial use designation to a non-industrial use designation, or an other
employment use designation to any other use designation, a city or county must address all
applicable planning requirements... "
The proposed Refinement Plan Amendment does not amend the Metro Plan or the General Land
Use Plan Diagram, and therefore does not affect the Metro Plan's inventory of employment
lands. Furthermore, the amendment affects an area of land that is smaller than two acres in size.
Therefore, pursuant to OAR 660-009-0010(4), the City is not required to demonstrate
conformance with Statewide Planning Goal 9.
Goal] 0 - Housing: To provide for the housing needs of citizens of the state.
Finding:
Goal 10 requires buildable lands for residential use to be inventoried and requires plans to
encourage the availability of adequate numbers of needed housing units at price ranges and rent
levels commensurate with the financial capabilities of Oregon households. Oregon
18
18th and "Q" Street prop.s -- Refinement Plan Amendment APPlicatio.
Written Statement -March 2, 2007
Administrative Rule 660 Division 8 defines standards for compliance with Goal 10. OAR 660-
008-0010 requires that
Sufficient buildable land shall be designated on the comprehensive plan map to satisfY
housing needs by type and density range as determined in the housing needs projection. The
local buildable lands inventory must document the amount of buildable land in each
residential plan designation.
The comprehensive plan map for Springfidd is the Metro Plan General Land Use Diagram. The
proposed amendment to the "Q" Street Refinement Plan does not amend the Metro Plan or its
General Land Use Diagram and therefore does not affect the Metro Plan's residential buildable
lands inventory. The proposed amendments conform to Goal 10.
Goal 11 - Public Facilities and Services: To plan and develop a timely, orderly and efficient
arrangement of public facilities and services as a framework for urban and rural development.
OAR 660-011-0005(7)(a)-(d) Definition of Public Facilities:
(a) Water .
(b) Sanitary Sewer
(c) Storm sewer
(d) Transportation
Finding:
Statewide Planning Goal 11, in part, ensures that appropriate public facilities and services are
provided within Urban Growth Boundaries in a timely, orderly, and efficient manner. The Metro
Plan and associated facility plans have been acknowledged to conform to Goal 11 ensuring that
public facilities and services are currently available to the subject site. Contingent upon approval
of this amendment, the applicant will submit appropriate applications for development of the
property in a manner consistent with the existing Metro Plan designation and the proposed
refinement plan designation. During and subsequent to the Development Issues Meeting
(ZON2006-00050) that preceded this application, City of Springfield staff and Springfield Utility
Board staff indicated which public facilities and services are adequate, and which will require
improvements. Staff indicated that the needed improvements can be constructed prior to or
concurrently with site redevelopment. With respect to specific public facilities and services:
Water Service
The site is currently served by 4-inch water lines on the east side of 18th Street and the north side
of "Q" Street. Springfield Fire & Life Safety staff (comments by Fire Marshal Gilbert Gordon)
indicated the system will require additional capacity to adequately serve the site. Springfield
Utility Board staff (Rebecca Templin) indicated SUB has additional capacity available in the
pipe on the east side of 18th Street to serve the site.
Sanitary Sewer
The sanitary sewer system currently serves the site with extensions from 8-inch pipes in 18th
Street. Springfield Public Works staff (comments by Jeff Paschall) indicated the sanitary system
may require line extensions but it has adequate capacity to serve the site. Staff indicated any
19
18th and "Q" Street prop.es - Refinement Plan Amendment APPlicatio.
Written Statement -March 2, 2007
necessary improvements can be worked out and constructed prior to or concurrently with site
redevelopment.
Storm Water Control
The city stormwater system serving the site includes a 15-inch pipe system at 18th and "Q"
Street and an existing open ditch along 18th Street. Public Works staff (comments by Matt
Stouder) indicated that the City will require either up-sizing the stormwater system or on-site
detention for specific site development and specific necessary improvements can be determined
at time of Site Plan Review.
The applicant's preliminary storm water plans include stormwater detention on Lot 3600 at the
southwestern portion of the subject site. Storm water facilities will be designed as a component
of subsequent land use approvals and constructed prior to or concurrent with site redevelopment
to meet City of Springfield storm water policies and regulations.
Transportation
The project area is currently served by 18th Street, which is classified as a local street. The
subject site has street frontage on "Q" Street, a major collector, but does not take direct access
from "Q" Street. City transportation staff has indicated (ZON2006~00050, comments by Gary
McKenney) that the subject site will continue to take access to the street system exclusively via
18th Street. Staff indicated street improvements will be necessary to 18th Street to serve the site
and specific necessary improvements will be determined prior to or at the time of Site Plan
Review.
To summarize this response regarding Goal 11, the subject site is inside the Eugene-Springfield
Metropolitan Urban Growth Boundary and City of Springfield city limits. The adopted and
acknowledged Metro Plan and associated facilities plans ensure that appropriate public facilities
and services are or can be extended to the site in a timefy, orderly, and efficient manner. The site
is currently served with existing public facilities and services and, as shown by these findings,
these systems can be accessed or improved as needed before or at the time of site redevelopment.
Therefore, this amendment is in compliance with Goal 11.
Goal 12 - Transportation: To provide and encourage a safe, convenient and economic
transportation system.
Finding:
Goal 12 is implemented through Division 12, OAR 660-012-0000 et. seq. The goal and division
are implemented at the local level by the Eugene-Springfield Metropolitan Area Transportation
Plan (TransPlan) which was acknowledged for compliance with Goal 12 in 2001.
Plan amendments and land use regulation amendments are regulated under OAR 660-012-0060,
the "Transportation Planning Rule." If an amendment significantly affects a transportation
facility, a local government must provide a form of mitigation. OAR 660-012-0060(1) states:
"A plan or land use regulation amendment significantly affects a transportation facility if it
would:
20
18th and "Q" Street prop.es - Refinement Plan Amendment APPlicatio_
Written Statement ~March 2, 2007
(a) Change the functional classification of an existing or planned transportation facility
(exclusive of correction of map errors in an adopted plan);
(b) Change standards implementing a functional classification system; or
(c) As measured at the end of the planning period identified in the adopted transportation
system plan:
(A) Allow land uses or levels of development that would result in types or levels of travel
or access that are inconsistent with the functional classification of an existing or
planned transportation facility;
(B) Reduce the performance of an existing or planned transportation facility below the
minimum acceptable performance standard identified in the TSP or comprehensive
;plan; or
(C) Worsen the performance of an existing or planned transportation facility that is
:otherwise projected to perform below the minimum acceptable performance standard
identified in the TSP or comprehensive plan."
OAR 660-012-0060(1): .
With regard to OAR 660-012-0060(1)(a) and (b), the proposed Refinement Plan Amendment
would not change the functional classification of any transportation facility, nor would it change
the standards for implementing the functional classification system.
With regard to OAR 660-012-0060(1)(c)(A), the proposed Refinement Plan Amendment would
not allow types or levels of uses which would result in levels of travel or access which are
inconsistent with the functional classification of a transportation facility. The policies of the City
of Springfield Development Code and the TransPlan establish the requested plan designation as
appropriate to the classification of the streets serving the site. Specific requirements for access to
those streets will be determined through Site Plan reviews and approved only upon
demonstration of compliance with the provisions of the acknowledged comprehensive plan and
implementing regulations.
With regard to OAR 660-012-0060(1)(c)(B) and (C), the performance analyses of transportation
facilities incorporated into the adopted and acknowledged Metro Plan elements addressing Goal
12 were based on General Land Use Plan Diagram designations. Analysis of residentially
designated land includes allowances for auxiliary uses on 32% of the land so designated. The
proposed Refinement Plan Amendment maintains the current Medium Density Residential
designation and applies the refinement plan designation of General Office as an auxiliary use
within the parameters of 32% auxiliary uses previously included in TransPlan's transportation
model. Therefore, there is no change to the planned transportation system capacity and it is not
significant affected.
Furthermore, the adopted and acknowledged Springfield Development Code stipulates when a
Traffic Impact Analysis may be required. SDC 32.020(1)( e) sets a traffic generation threshold of
21
18th and "Q" Street prop.s - Refinement Plan Amendment APPlicatiO. '
Written Statement -March 2, 2007
250 vehicle trips per day, below which, all else being equal, a TIA is not required. The
implication is that generating fewer than 250 vehicle trips per day does not significantly affect
the transportation system.
Exhibit 5 (Memorandum Regarding Vehicle Trip Generation), submitted herewith and
incorporated by reference, is based on the current version of the Institute of Transportation
Engineers Trip Generation Informational Report and presents calculations showing that potential
development under the proposed Refinement Plan Amendment will not add more than 250
vehicle trips per day to the transportation system. Specifically the trip generation calculations in
Exhibit 5 demonstrate the proposed change will result in an increase of 17 vehicle trips per day
as compared to the current zoning and plan designation and will not significantly affect the
transportation system.
For the reasons presented above, pursuant to OAR 660-012-0060(1), the proposed Refinement
Plan Amendments do not significantly affect existing or planned transportation facilities.
Therefore, the City of Springfield can find that the proposal is consistent with Statewide
Planning Goal 12.
Goal 13 - Energy Conservation: To conserve energy. Land and uses developed on the land
shall be managed and controlled so as to maximize the conservation of all forms of energy,
based upon sound economic principles:
Finding:
The Metro Plan is acknowledged, by the Oregon Department of Land Conservation and
Development as conforming to the provisions of Statewide Planning Goal 13. This application
does not amend any component of the Metro Plan, or any regulation pursuant to that plan, related
to Goal 13. Therefore, these amendments are consistent with the Metro Plan and conform to
Statewide Planning Goal 13.
Goal 14 - Urbanization: To provide for an orderly and efficient transition from rural to urban
land use.
Finding:
All of the parcels affected by this application are currently within the Urban Growth Boundary
and were annexed into the City of Springfield. The annexation was made in compliance with an
acknowledged comprehensive plan and implementing ordinances, and established the
appropriateness of urban development and the availability of urban facilities and services.
Findings to demonstrate this application and the proposed Refinement Plan Amendment are
consistent with Goal 11 are incorporated herein by reference. As demonstrated by the referenced
findings, urban facilities are already provided to the site and can be improved as needed for
development within the proposed refinement plan designation. Therefore the amendments are
consistent with Statewide Planning Goal 14.
Goal 15 - Willamette River Greenway: To protect, conserve, enhance and maintain the natural,
scenic, historical, agricultural, economic and recreational qualities of lands along the
Willamette River as the Willamette River Greenway.
22
18th a~d "Q" Street ProP.s - Refinement Plan Amendment APPlicatiO.
Written Statement -March 2, 2007
Finding:
The subject site is not within the Willamette ~iv~r Greenway. Therefore, this goal is not
relevant and the amendment will not affect compliance with Goal 15.
Goal 16 through 19: (Estuarine Resources, Coastal Shore lands, Beaches and Dunes, and Ocean
Resources):
Finding:
There are no coastal, ocean, estuarine, or beach and dune resources related to the property or
involved in the amendment. Therefore, these goals are not relevant and the amendment will not
affect compliance with Goals 16 through 19.
As shown by these findings and responses, the amendment conforms with the applicable
Statewide Goals and Administrative Rules and therefore satisfies the approval criteria in SDC
Section 8.030(3).
VI. CONCLUSION
Based on the above analysis and findings of compliance with approval criteria and adopted plans
and policies, the requested Refinement Plan Amendments conform to all approval criteria. The
applicant therefore requests approval.
If you have any questions about the above application, please do not hesitate to contact the
applicant's representative, Richard M. Satre, at Satre Associat~s, P.C. (465-4721).
23
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--
EXHIBIT 5
TECHNICAL MEMORANDUM
Date: March 1,2007
To: Mr. Gary McKenney, P.E.
City of Springfield Transportation Dept.
225 Fifth Street
Springfield, Oregon 97477
From: Damien Gilbert, P.E.
Exp; JUNE 30, 2007
Re: Zone Change and Plan Amendment at 18th & 'Q' Streets
Assessors Map: 17-03-25-24, Lots: 3600, 4700, 4800, 4900, and 5000
Branch Project No. 07-047
In an effort to identify a potential "significant impact", as defmed in Oregon Administrative Rule
660-012-0060, I am supplying this memorandum summarizing the expected increase in trip
generation associated with the subject project. lbis is not intended to be a formal Transportation
Planning Rule (TPR) Analysis, but is intended to be the basis for determining if further analysis
. will be required, and identifying the scope of that analysis, if necessary.
Existing Conditions
The subject property includes five tax lots, and some public right-of-way that is proposed to be
vacated. The private property totals 1.18 acres., is partially developed with two single family
detached dwellings, and is currently zoned Medium Density Residential(MDR). In a MDR
zone, the City requires at least 11 dwellings per acre, with a maximum density of 20 dwelling
units per acre. This results in a maximum development potential of 23 apartment units on this
site lUlder the current designation.
Proposed Deveiopment
The project team has prepared a preliminary conceptual plan that includes 18,300 square feet of
general office building with the associated required parking and landscape areas, as well as the
CIVIL
STRUCTURAL
TRAFFIC I TRANSPORTATION
SURVEYING
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18th & 'Q' Streets, Springfield
Trip Generation Comparison for Zone Change
Page 2 of 3
property line setbacks. Some of this future development is in existing right-of-way that is
proposed to be vacated in the future.
For the purpose of this analysis, only the private property was used in identifying the differences
in site generated traffic, since the future street vacation is not guaranteed. Based on the private
property area, the project Architect and Planners have identified'a 15,600 square foot building to
be the reasonable worst case development scenario under the proposed designation.
Trip Generation
To project trip generation for the existing and proposed land uses (apartment and general office,
respectively), a reference was made to Trip Generation. 7th Edition, published by the Institute of
Transportation Engineers (ITE).
The following tables summarize the differences in site generated traffic from the proposed
change in zoning from MDR to GO:
---..-... -- -- -- -- - .. u-Trfii Geii-eration "Comparison . .. - - . ~.-
(Daily)
Land Use Average Rate Number Total
per Unit of Units Trips
Existing: 6.72 Trips per 23 155
Apartment (ITE Land Use Code 220) Dwelling Unit
Proposed: 11.01 Trips per
General Office Building (lTE Land Use 1,000 square feet of 15.6 172
Code 710) Gross floor area
Projected Increase in Daily Trips - - 17
Resulting from Zone Change
Trip Generation Comparison
(PM Peak Hour)
Land Use Average Rate Number Total
per Unit of Units Trips
Existing: 0.62 Trips per 23 15
Apartment (ITE Land Use Code 220) Dwelling Unit
Proposed: 1.49 Trips per 1,000
General Office Building (ITE Land Use square feet of 15.6 24
Code 710) . Gross floor area
Projected Increase in PM Peak Hour - - 9
Trips Resultina from Zone Chanae
In summary, the potential site generated traffic associated with the GO Zone, under a reasonable
worst case development scenario, does not increase greatly from the similar assumptions for the
Branch Engineering, Inc.
March 1, 2007
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18th & 'Q' Streets, Springfield
Trip Generation Comparison for Zone Change
Page 3 of 3
MDR Zone. The expected change in site generated traffic is likely within the range of day to day
fluctuations at nearby affected transportation facilities; and therefore should not be considered a
significant impact.
Please review this limited trip generation summary and let me know at your earliest convenience
if a formal TPR analysis should be prepared for this zone change and plan amendment. Also,
please do not hesitate to contact me with any questions, or if I can provide any additional
information.
Branch Engineering, Inc.
March 1, 2007
....
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SATRE
ASSOCIATES
Satre Associates, P.C.
132 East Broadway
Suite 536
Eugene, Oregon 97401
Phone 541.465.4721
Fax 541.465.4722
1.800.662.7094
www.satrepc.com
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March 2, 2007
David Reesor
City of Springfield
Development Services Department
Planning Division
225 Fifth Street
Springfield, Oregon 97477
Re: 18th and "Q" Street Professional Office Development
Application to Amend the Q Street Refinement Plan
Dear David,
With the enclosed submittal packet; the applicant and property owner, Scott
McKee, applies to amend the Q Street Refinement Plan. The reque~t includes a site-
specific Land Use Diagram amendment for plan re-designation of the
applicant/owner's set of five contiguous properties at the comer of 18th and "Q"
Streets. In addition, the requesUncludes a text amendment to the'refinement plan
document.
Included herein are the application form, written statement and exhibits. The
exhibits demonstrate the. existing and the proposed refinement plan de'signation.
The proposed text amendment is included in the written statement.
This amendment is submitted concurrently with an application for' Zoning Map
Amendment for the same properties. In order. to'expedite review arid to respect the
schedules of members of the reviewing public agencies, of interested members of
the public, and of city staff, the applicant requests the public hearing processes for
both applications proceed concurrently.
As the applicant's representative for this application, Satre Associates, P.C. is
available to answer any questions as needed. Thank you in advance for your
consideration of the application.
. chard M. Satre, ASLA, AICP
. Satre Associates, P. C.
Planners, Landscape Architects and Environmental Specialish
SATRE
ASSUCfA.TES
18TH AND "Q" STREET
PROFESSIONAL OFFICE DEVELOPMENT
WNlNG MAP AMENDMENT
APPLICATION
Lane County'Assessor's Map 17-03-25-24
Tax Lots 3600, 4700, 4800, 4900 and 5000
Scott McKee
110116th Street
Springfield, Oregon 97477
March 2, 2007
1-72
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18TH AND "Q" STREET PROFESSIONAL OFFICE DEVELOPMENT
ZONING MAP AMENDMENT APPLICATION
T ABLE OF CONTENTS
Cover Letter .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Table of Contents ........................................................................
Application Form .........................................................................
Written Statement........................................................................
Exhibits
1. Property Deeds . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
2. Q Street Refinement Plan Diagram (Plan Designation) . .. ... .. . ........
3. Existing Zoning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
4. Proposed Zoning ............................................................
5. Memorandum Regarding Vehicle Trip Generation .........................
No. of Pages
1
1
2
16
5
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SATRE ASSOCIATES, P .C.
Planners, Landscape Architects and Environmental Specialists
132 East Broadway, Suite 536, Eugene, Oregon 97401
(541) 465-4721 . Fax (541) 465-4722 . 1-800-662-7094
www.satrepc.com
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III!lflI
III
SATRE
ASSOCIATES
March 2, 2007
18TH AND "Q" STREET PRQFESSIONAL OFFICE DEVELOPMENT
ZONING MAP AMENDMENT APPLICATION
WRITTEN STATEMENT
PURPOSE:
The applicant, Scott McKee, owns five contiguous properties at 18th and "Q" Streets identified
on Lane County Assessor's Map 17-03-25-24 as Tax Lots 3600, 4700, 4800, 4900 and 5000.
The total area of the five properties equals approximately 1.17 acres. The applicant requests a
Zoning Map Amendment to change the zoning of the properties. The existing zoning is Medium
Density Residential. The applicant proposes to amend the Zoning Map to rezone the properties
to General Office zoning. Approval will facilitate development of an attractive professional
office building on currently under-utilized property at the transition between a residential
neighborhood and a community commercial area.
I. GENERAL INFORMATION
Application Team
Owner/Applicant:
Scott McKee
1101 16th Street
Springfield, Oregon 97477
Attn: Scott McKee
(541) 683-2180. Fax (541) 485-7183 · scottmckee@qfginc.com
Planner/Landscape Architect/Environmental Specialist/
Applicant's Representative for this Application:
Satre Associates, P.C.
132 East Broadway, Suite 536
Eugene, Oregon 97401
Attn: Richard M. Satre, ASLA, AICP
Tim Shinabarger, MCRP
(541) 4650,4721 · Fax (541) 465-4722 · r.satre@satrepc.com
t.shinabarger@satrepc.com
18th and "Q" Street prop.s - Zoning Map Amendirt~ht Application e
Written Statement - March 2, 2007
Architect:
Rowe Architecture and Planning, LLC
785 Sand Avenue
Eugene, Oregon 97401
Attn: Albert H. Rowe, CSI, AlA
(541) 484-6820. Fax (541) 431-7016. RoweArchPlanning@comcast.net
Civil Engineer/Surveyor:
Goebel Engineering & Surveying, Inc.
310 Garfield Street
Eugene, Oregon 97402
Attn: Scott Goebel, P.E., P.L.S.
(541) 687-0542. Fax (541) 687-0739 · scott@goebeleng.com
II. LAND USE REQUEST
The applicant requests approval of a Zoning Map Amendment to change the zoning district of
the applicant's five contiguous properties at 18th and "Q" Street. The properties are identified on
Lane County Assessor's Map 17-03-25-24 as Tax Lots 3600, 4700, 4800, 4900 and 5000. The
total area of the five properties equals approximately 1.17 acres. The existing zoning of all five
properties is Medium Density Residential. The applicant proposes to amend the Zoning Map to
rezone the properties to the GO General Office Zoning District. The existing zoning is shown on
Exhibit 3, submitted herein. The proposed zoning is shown on Exhibit 4.
This written statement applies to the Zoning Map Amendment application. The applicant is also
submitting a concurrent application for a Refinement Plan Amendment to redesignate the subject
site to General Office (GO) designation in the Q Street Refinement Plan. The referenced
Refinement Plan Amendment application is being submitted concurrently but separately as a
stand-alone application. Although each application is submitted independently and must be
reviewed on its own, the applicant requests that the public process take place concurrently for the
two applications. Specifically, the applicant requests that:
. At the level of the Springfield Planning Commission, the required public hearing
processess for both applications be combined into one public hearing process;
. At the level of the Springfield City Council, the required public hearings for both
applications be combined into one public hearing process.
Because the Zoning Map must be consistent with the applicable refinement plan designation, the
applicant requests City Council decision on the proposed Refinement Plan Amendment precede
its decision on the proposed Zoning Map Amendment.
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18th and "Q" Street ProP.s - Zoning Map Amendtiient Application e
Written Statement - March 2, 2007
III. THE SITE AND EXISTING CONDITIONS
Location .
The subject site is located at the northwest comer of the intersection of 18th and "Q" Streets. It
consists of Tax Lots 3600, 4700, 4800, 4900 and 5000, all on Lane County Assessor's Map 17-
03-25-24. The applicant owns all five properties. Street addresses are available in the Lane
Council of Governments Re~ional Land Information Database for three of the listed tax lots. The
street addresses are 1895 1 i Street A, 1868 18th Street and 1866 18th Street.
Metro Plan Designation
The adopted Eugene-Springfield Metropolitan Area General Plan (Metro Plan) Diagram applies
Medium Density Residential designation to the properties.
Refinement Plan Designation
The applicable refinement plan for the subject site is the Q Street Refinement Plan. The Q Street
Refinement Plan Diagram (Exhibit 3) applies Medium Density Residential designation to all
properties included within the subject site.
Zoning
The Springfield Zoning Map places the subject site within the MDR Medium Density
Residential zoning district.
Use
Two of the subject properties (Tax Lots 4700 and 4800) are developed with small single-family
houses. Three lots (Tax Lots 3600, 4900 and 5000) are vacant.
Context
The subject site is located just north of the westbound on-ramp for the Eugene-Springfield
Highway and is separated from the Highway by the "Q" Street right of way.. The site is one block
west of the intersection of the Eugene-Springfield Highway with Mohawk Boulevardl19th Street.
Properties east of the subject site are zoned Community Commercial and designated Commercial
on the Metro Plan and refinement plan. Properties behind (west of) and north of the subject site
are zoned and designated Medium Density Residential.
The subject properties have approximately 246.5 feet of street frontage on 18th Street and 170
feet of street frontage on "Q" Street. The City of Springfield Map of Streets by Functional Class
identifies 18th Street as a local street and "Q" Street as a collector street.
The properties are in an area determined to be outside of the 500-year floodplain, according to
the National Flood Insurance Program Flood Insurance Rate Map #41039CI153F. The properties
are not in areas identified in the Local and National Wetland Inventory Map. The Springfield
Drinking Water Protection Overlay Map indicates at least part of the site appears to be within the
I-year Time of Travel Zone for the 16th and "Q" Street Wellfield.
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18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
Adiacent Uses
To the south, "Q" Street borders the south side of the subject site and the Eugene-Springfield
Highway is immediately south of "Q" Street, creating a substantial swath of right-of-way m~re
than 400 feet wide dividing the subject site from other development to the south.
Properties in Medium Density Residential zoning and plan designation are adjacent to the west
and north sides of the subject site.
Properties adjacent to the east side of the subject site are in Community Commercial zoning.
Commercial uses located adjacent to and northeast of the subject site on the opposite side of 18th
Street include an auto repair shop and a veterinarian's office. Commercial uses located adjacent
to and east of the subject site on the opposite side of "Q" Street include a Dari-Mart store and a
pizza restaurant.
Utilities
Utility data from the City of Springfield and Springfield Utility Board show the subject
properties are currently served by sanitary sewer system via an 8" concrete pipe in the west side
of 18th Street. The storm drain system is in the Q Street right of way and along the east'side of
18th Street. Springfield Utility Board (SUB) indicates it has sufficient capacity to provide
electrical and water service to the site. For electric service, SUB has overhead primary on the
east side of 18th Street. For water service, SUB has a water line that extends along the east side of
18th Street and the north side of "Q" Street. According to SUB's water department, the water line
currently has three service laterals extending to the subject site.
IV. PROPOSED USE/ PROGRAM
Contingent on approval of the current application and other applications as required, the
applicant is preparing to submit applications to construct a professional office building on the
subject site. The office building as envisioned would be located at the front of the subject site;
parking would be located at the rear and north side of the site, separated from adjacent residential
development by landscaped buffer as per screening standards in the Springfield Development
Code. The building as envisioned will consist of two stories with a total of approximately 15,600
square feet, and the design will be considerate of the neighbors and of the characteristics of the
neighborhood, which includes residential homes and commercial development. The existing
residential dwellings will be removed.
Article 18 of the Springfield Development Code identifies the GO General Office district as
designed to be compatible with residential neighborhoods. SDC 18.01 0(4) identifies GO General
Office zoning as intended to encourage appropriate office development and designed to be a
transition zone providing a buffer between residential and more intensive Community
Commercial uses. The Schedule of Use Categories in Commercial districts (SDC 18.020)
permits office buildings.
The subject properties are located on the outer edge of a large residential neighborhood next to
an area of Community Commercial zoning. This is the type of transitional area specified in SDC
18.010(4)'s description of General Office zoning, which describes it as serving as a buffer
between residential and Community Commercial zoning. The limited list of uses permitted in the
General Office zone (primarily restricted to office use) is compatible with the character of the
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18th and "Q" Street ProP.s - Zoning Map Amendment Application tit
Written Statement - March 2, 2007
Medium-Density Residential neighborhood on the west and north sides ofthe subject site and the
Community Commercial area on the east side.
Section V of this Written Statement demonstrates that the requested Zoning Map Amendment
satisfies the approval criteria found in the Springfield Development Code Section SDC 8.030 for
zoning map amendments.
,V. APPLICABLE CRITERIA AND FINDINGS
Springfield Code Section SDC 12.030 requires an evaluation of any Zoning Map Amendment to
determine whether the amendment is consistent with the following approval criteria. Approval
criteria are shown in bold and italics text. Approval criteria include:
SDC 12.030(3)
(a) Consistency with applicable Metro Plan policies and the Metro Plan diagram;
(b) Consistency with applicable Refinement Plans, Plan District maps, Conceptual
Development Plans andfunctional plans; and
(c) The property is presently provided with adequate public facilities, services and
transportation networks to support the use, or these facilities, services and transportation
networks are planned to be provided concurrently with the development of the property.
(d) Legislative Zoning Map amendments that involve a Metro Plan Diagram amendment
shall:
1. Meet the approval criteria specified in Article 7 of this Code; and
2. Comply with Oregon Administrative Rule (OAR) 660-012-0060, where applicable.
Findings are submitted in this section of the written statement to demonstrate consistency with
each approval criterion. Again, each approval criterion is shown in bold and italics text. Each
criterion is accompanied by the correlating findings to demonstrate consistency with the approval
criterion. Findings are displayed in normal text.
(a) Consistency with applicable Metro Plan policies and the Metro Plan diagram;
Consistency with applicable Metro Plan Policies:
Metro Plan Chapter III, Specific Elements
A. Residential Land Use and Housing Element
Policy A.22. Expand opportunities for a mix of uses in newly developing areas and existing
neighborhoods through local zoning and development regulations.
Findings:
The Metro Plan Glossary, p. V -3, defines "Mixed use" as
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18th and "Q" Street proptes - Zoning Map Amendment Application e
Written Statement - March 2, 2007
A building, project or area of development that contains at least two different land uses such
as housing, retail, and office uses.
Regarding Policy A.22, the proposed zone change provides the opportunity for a mix of uses in
an existing neighborhood consistent with the city's intent in establishing the General Office
zoning in Springfield Development Code Section 18.01 0(4) as
a transition zone, providing a buffer between residential and more intensive commercial
development at the boundaries of a Community Commercial or Major Retail Commercial
designation.
The subject site is appropriate for the GO General Office Zoning District as stipulated in SDC
18.010(4) because it is at a transition zone between residential (west of 18th Street) and more
intensive community commercial (east of 18th Street) development. The proposed zoning map
amendment expands opportunities for a compatible mix of uses in the existing neighborhood and
therefore is consistent with this policy.
B. Economic Element
Policy B.6. Increase the amount of undeveloped land zoned for light industrial and commercial
uses correlating the effective supply in terms of suitability and availability with the projections of
demand.
Findings:
The subject site has characteristics that make it suitable for low-impact commercial uses but
unsuitable for intensive community commercial use. It has frontage on "Q" Street, a Major
Collector, and is adjacent to an interchange on the Eugene-Springfield Highway (1-105). It is
adjacent to Community Commercial designation and also adjacent to Residential designation,
and therefore fits the intention ofSDC 18.010(4) for the location of General Office zoning.
The subject site also has .characteristics that make it unsuitable for the existing Medium Density
Residential zoning and thus make it available for the proposed General Office zoning; The
subject site has significant visibility, dust and noise exposure to the Eugene-Springfield Highway
(I -105) and its westbound on-ramp. Specifically, this two-lane on-ramp is less than 100 feet from
the subject site, separated from it only by the "Q" Street right-of-way with no intervening buffer.
These characteristics were noted in the "Q" Street Refinement Plan document in its "Findings"
section, specifically in the Transportation Findings #4 and #7 on page 5 of the refinement plan
document:
#4): There is little or no sound buffering between the Eugene-Springfield Highway and the
residential areas within the Q Street area.
#7): There is little or no mitigation of dust between the Eugene-Springfield Highway and the
Q Street residential area. (Q Street Refinement Plan Transportation Findings, p. 5)
These characteristics diminish the site's attractiveness as a location for residential housing and
limit its development potential in its current zoning with the result that three lots are vacant and
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18th and "Q" Street ProP.s - Zoning Map Amendment Application e
Written Statement - March 2, 2007
the remaining two lots are underdeveloped. Lot 4700 has a 912 square foot house (counting attic
space) and Lot 4800 has a 1,092 square foot house while Lots 3600, 4900 and 5000 are vacant.
With its attractiveness as a location for housing diminished by its proximity to a major street and
a highway, the site should be considered for other uses. Because it is contiguous with residential
properties on the local streets (18th Street and 17th Street) and abuts Community Commercial
property on the collector street ("Q" Street), the site is specifically suitable for General Office
zonmg.
Regarding effective supply and projections of demand, the City of Springfield adopted the
Springfield Commercial Lands Study, February 2000. It contains the following passages:
"A detailed supply/demand analysis revealed a need for a minimum of 255 acres of
commercial land to the year 2015 based on an absorption rate of 17 acres per year.
Currently, there are 85 acres of vacant and 12 acres of redevelopable commercial land
within the City's UGB, a total of97 acres. " (Finding, page ii.)
"Given the patterns of development, the CAC [Citizen Advisory Committee] asserts the
vacant land inventory represents no more than a two-year supply, and noted that there is a
needfor a supply of both larger and smaller sites to provide choice, diversity and economy in
the marketplace. Given the current shortage of larger sites, rezoning or annexation may be
necessary for this to occur. " (Significant Recommendation, page iv.)
"Policy I-A: Maintain a mixed supply of large and small commercial sites through strategies
such as rezoning or annexation to serve Springfield's future population." (Key Policy,
page v.)
Clearly, there is a critical need for more commercial land. The proposed Zoning Map
Amendment would facilitate development of the subject site for commercial purposes. It would
allow appropriate compact development on land that is, at best, only marginally suited for
residential use. The amendment will conform to the recommendations and policies of the
Springfield Commercial Lands Study.
To summarize, the amendment affects a site that:
. consists of undeveloped and underdeveloped land
. is ill-suited for its current zoning
. is well suited as a transition from residential to more intensive commercial use
. provides critically needed land available for commercial uses.
By applying the appropriate zoning, the amendment increases the amount of suitable land
available for commercial uses, and moves toward a better equilibrium of supply and demand.
Therefore, the amendment conforms with Policy B.6.
Policy B.22. Review local ordinances and revise them to promote greater flexibility for
promoting appropriate commercial development in residential neighborhoods.
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18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
Findings:
The language in the Springfield Development Code establishing the General Office zoning (SDC
Section 18.01 0(4)) defines it as
." a transition zone, providing a buffer between residential and more intensive
commercial development at the boundaries of a Community Commercial or Major Retail
Commercial designation.
The subject site is at the appropriate location for this zoning because it is on the edge of a
residential neighborhood where the residential neighborhood shares a boundary with Community
Commercial designation. The proposed Zoning Map Amendment introduces office development,
as an auxiliary use, into a residentially zoned area at the transition to commercial zoning without
permitting more intensive Community Commercial levels of development. A zoning of
Community Commercial would not be appropriate for the subject site because some uses
permitted in Community Commercial zoning tend to produce traffic patterns and volumes, noise
and other impacts that could detract from the residential character of the neighborhood. A review
of the Commercial Zoning Districts Schedule of Use Categories demonstrates that the requested
zoning allows less intensive uses than the Community Commercial zoning to the east allows. By
preventing or limiting impacts that more intensive commercial development could cause to
residential areas, the requested zoning therefore buffers existing residential development from
the more intensive Community Commercial development. The following paragraph examines the
issue of buffering residential from Community Commercial development in more detail.
The Springfield Development Code Commercial Zoni.ng Districts Schedule of Use Categories is
at SDC Section 18.020 and has 14 use categories and a total of223 uses that may be permitted in
some or all of the commercial zoning types. Permitted uses within the General Office Zoning
District are almost exclusively limited to the uses listed in SDC Section 18.020 Category (3),
Business and professional offices and personal services. By contrast, the permitted uses within
the Community Commercial Zoning District include all 59 uses listed in SDC Section 18.020
Category (9), Retail Sales and several of the automobile-related uses listed in Category (2),
Automotive, marine and mobile/manufactured home sales, service, storage and repair. Many of
the uses permitted in Community Commercial zoning but not permitted in General Office zoning
have impacts on surrounding areas that could be adverse impacts if adjacent to a residential
neighborhood. For example, grocery stores, which could generate vehicle traffic beyond the
capacity of a residential neighborhood's street system and beyond the comfort level of residents,
are permitted in Community Commercial zoning but not permitted in General Office zoning.
Other potentially more intensive uses that are permitted in Community Commercial zoning but
not permitted in General Office zoning include liquidation outlets, drive-in restaurants and car
washes, all of which could introduce higher impact traffic volumes and patterns, noise and other
impacts into the residential neighborhood than would office uses.
The requested GO General Office zoning promotes lower impact commercial development, is
designed specifically to provide a buffer between .the residential neighborhood and more
intensive commercial development, and is therefore appropriate commercial development for a
site with a location at the edge of the residential neighborhood. Revising the local Zoning
District Map to apply General Office zoning to the subject site promotes greater flexibility for
promoting appropriate commercial development in, but at the edge of, the residential
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18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
neighborhood. It provides an intermediate level of development for the transitional area,
development that expands commercial opportunities at a scale appropriate for residential
neighborhoods, and is therefore consistent with Economic Element Policy B.22.
Consistency with the Metro Plan Diagram
Findings:
The Metro Plan allows a limited range of auxiliary uses in its Residential designation when those
uses are auxiliary to the principal use of the designation, which is residential use. The Metro
Plan's Residential designation description assumes approximately 32 percent of the residential
areas within the Urban Growth Boundary will be dedicated to auxiliary uses. Two paragraphs of
the Metro Plan text that are relevant to the present application are reprinted here in italics:
Certain land uses are not individually of a metropolitan-wide significance in terms of size
or location because of their special nature or limited extent. The Diagram's depiction of
land use designations is not intended to invalidate local zoning or land uses which are
not sufficiently intensive or large enough to be included on the Metro Plan Diagram.
(Chapter II-G, Metro Plan Diagram, Land Use Designations, p. II-G-2)
Using gross acres, approximately 32 percent of the area is 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.
( Chapter II-G, Metro Plan Diagram, Land Use Designations, Residential, p. II-G-3)
As shown in these text excerpts, the Metro Plan's allowance for auxiliary uses in its residential
designations anticipates the need for neighborhood commercial services. The Metro Plan
Diagram does not differentiate between General Office and Neighborhood Commercial Plan
designations. The Metro Plan document's text language allowing
auxiliary uses, such as streets, elementary and junior high schools, neighborhood parks,
other public facilities, neighborhood commercial services, and churches
in Residential designations provides a list of examples, does not confine auxiliary uses to the
specific listed uses, and does not rule out establishing General Office services as an auxiliary use
in the Metro Plan's Residential designations.
The applicant held a Development Issues Meeting (October 19, 2006, Case Number ZON2006-
00050) to work with city staff to determine the appropriate zoning and plan designation for the
contemplated use. Staff noted that the 32 percent auxiliary uses allowed in the Metro Plan
Diagram's Residential designation can include General Office use.
The 32 percent available for auxiliary use applies to the Metro Plan's entire inventory of
residentially designated gross acreage within the Urban Growth Boundary (UGB). According to
the Metro Plan text in Chapter G, Metro Plan Diagram, p. II-G-l,
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18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
When local plans include densities or land use allocations significant on a metropolitan
scale, their adoption requires analysis of metropolitan implications, followed by amendments
to the Metro Plan, when necessary. Standards for identifying factors of metropolitan
significance need to be defined and agreed to by Springfield, Lane County, and Eugene.
An analysis of the precise current allocation of residential auxiliary uses in the entire
metropolitan area is not warranted for a proposal of this scope. The consultant team for this
application used GIS data to calculate the amount of land the Metro Plan Diagram designates for
its different residential use designations specifically within the area encompassed by the
applicable refinement plan for the subject site, which is the Q Street Refinement Plan,. Of the Q
Street Refinement Plan's approximately 479 acres, the Metro Plan applies Residential
designation to approximately 404 acres. The designation is broken down as shown in Table 1,
below.
Table 1. Metro Plan Land Use Designation of Land in the Q Street Refinement Plan Area
Metro Plan Designation Acreage
Commercial 75.14
Low Density Residential 18.12
Medium Density Residential 311.73
High Density Residential 74.18
Total Residential 404.03
Total in Refinement Plan Area 479.17
(Source: Satre Associates, p,c., using Lane Council of Governments GIS data)
The proposed amendment will shift 1.17 acres of Metro Plan residentially designated land from
the principal residential use to an auxiliary use. In terms of impact on the area encompassed by
the Q Street Refinement Plan, 1.17 acres is less than three-tenths of 1 percent (0.29%) of the 404
acres with Residential Metro Plan designation within the refinement plan area itself. The Zoning
Map Amendment is not significant on a metropolitan scale and therefore analysis of metropolitan
implications is not necessary.
A comparison of Neighborhood Commercial regulations with General Office regulations reveals
many similarities. An important similarity is that allowed uses in General Office and
Neighborhood Commercial zoning create relatively limited impacts on residential properties in
contrast to Community Commercial and Major Retail Commercial zoning. The list of permitted
uses in General Office zoning allows fewer uses compared with the Neighborhood Commercial
zoning, as shown in the Schedule of Use Categories for Commercial zoning types in the
Springfield Development Code at SDC Section 18.020.
The proposed amendment will expand the area available for neighborhood commercial services
as was anticipated by the Metro Plan's allowance for auxiliary uses. In the entire area
encompassed by the Q Street Refinement Plan, no properties are zoned General Office and only
one property is currently zoned Neighborhood Commercial. This indicates a need for General
Office development in the area. The one property that is zoned Neighborhood Commercial,
located at 2454 10th Street adjacent to Hayden Bridge Road, identified as Map and Tax Lot 17-
03-26-12, 00100, has an area of approximately 0.37 acres. The Metro Plan Diagram applies
Residential designation to that property, indicating that its Neighborhood Commercial use is an
auxiliary use within the Metro Plan's Residentially designated acreage.
10
18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
Because the Development Code's General Office Zoning District permits a relatively narrow
range of uses compatible with residential development and such uses will provide office services
to neighborhood residents and other city residents, the Zoning Map Amendment provides an
auxiliary use to the principal residential use within the Metro Plan's residential area as provided
for in the Metro Plan document.
If approved, the proposed Zoning Map amendment will change the zoning to General Office for
approximately 1.17 acres. Hence, it will shift 1.17 acres of Metro Plan residentially designated
land from the principal residential use to an auxiliary use. As noted in these findings, it is not
necessary to analyze the metropolitan-wide significance of the zone change in terms of its impact
on the residential land inventory. The zone change will not affect the Metro Plan Diagram's
Residential designation, and will not affect the effectiveness of the residential land inventory in
its principal function, which is to provide living area (area for residential use) for the
metropolitan area's population.
As shown by these findings, the requested Zoning Map Amendment provides for an auxiliary use
to the principal residential use within the Metro Plan's Medium Density Residential designation
and it is therefore consistent with the Metro Plan Diagram.
SDC 12.030(3)(b) Consistency with applicable adopted Refinement Plans, Plan District maps,
Conceptual Development Plans and functional plans; and
Findings:
Consistency with General Office Refinement Plan Designation
The applicable adopted refinement plan for the subject site is the Q Street Refinement Plan. At
time of submittal of this application, the applicant submitted a concurrent and separate
refinement plan amendment application proposing General Office refinement plan designation
for the subject site.
As stated in Section II of this narrative, A City Council decision to approve the refinement plan
amendment application may technically precede its decision on this Zoning Map Amendment
application. Approval of the refinement plan amendment will amend the refinement plan to apply
General Office designation to the subject site. The proposed Zoning Map Amendment to apply
General Office zoning to the subject site is consistent with the General Office refinement plan
designation.
Consistency with Medium Density Residential Refinement Plan Designation
At time of submittal of this Zoning Map Amendment application, the "Q" Street Refinement
Plan Diagram applied Medium Density Residential designation to the subject site. To allow for
the possibility that the refinement plan designation remains Medium Density Residential at time
of City Council decision on this Zoning Map Amendment application, findings are presented
here to demonstrate consistency with Medium Density Residential refinement plan designation.
Medium Density Residential refinement plan designation is consistent with the Metro Plan,
which applies Medium Density Residential designation to the subject site. The Metro Plan
11
18th and "Q" Street Pro_es - Zoning Map Amendment A~plication '_
Written Statement - March 2, 2007
provides for auxiliary uses of up to 32 percent of the land area designated for residential use
within the area encompassed by the Metro Plan. The applicant's findings in response to the
approval criterion at SDC 12.030(3)(a), which demonstrate that the General Office zoning can be
allowed as an auxiliary use within the Metro Plan's Residential designation, are incorporated
herein by reference.
The Metro Plan document clarifies the relationship of the Metro Plan to other plans, policies, and
reports in its Introduction Chapter 1, Relationship to Other Plans, Policies, and Reports. The
referenced text discusses the types of Refinements and refinement plans to the Metro Plan that
are possible. The Metro Plan text states,
In all cases, the Metro Plan is the guiding document, and refinement plans and policies must
be consistent with the Metro Plan. Should inconsistencies occur, the Metro Plan is the
prevailing policy document.
(Metro Plan, p. 1-5)
Because refinement plans must be consistent with the Metro Plan and the Metro Plan provides
for auxiliary uses within its Residential designations, the Q Street Refinement Plan must also
provide for auxiliary uses within its Residential designations. Because the General Office zoning
can be an auxiliary use in Residential plan designations, the proposed Zoning Map Amendment
is consistent with the refinement plan designation of Medium Density Residential.
As demonstrated by these findings, the proposed Zoning Map Amendment is consistent with the
refinement plan designation.
Consistency with applicable adopted Refinement Plans: Policies and Criteria
With respect to the Q Street Refinement Plan's policies and criteria, applicable policies are
printed here in italics followed by the applicant's response in normal type.
Commercial Policy 1. Provide vacant and redevelopable land to allow for the expansion of
commercial uses, and to encourage new commercial development.
Findings:
Within the subject site three lots are vacant and two lots are underdeveloped. The site is partly
vacant and entirely redevelopable. The subject site's proximity to the Eugene-Springfield
Highway and to the Highway's intersection and on-ramp makes it difficult to realize the site's
full potential with residential zoning. The Q Street Refinement Plan's Transportation Findings #4
and #7 are relevant:
· Transportation Finding' 4. There is little or no sound buffering between the Eugene-
Springfield Highway and the residential areas within the Q Street area.
· Transportation Finding 7. There is little or no mitigation of dust between the
Eugene/Springfield Highway and the Q Street residential area.
Th~ noise and dust from the Eugene/Springfield Highway referred to in Finding #4 and Finding
#7 especially affect the residential properties closest to the highway such as the subject site.
These characteristics diminish the site's attractiveness as a location for residential housing and
12
18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
therefore limit its development potential in its current zoning. The result is an underdeveloped
site with three vacant lots and two redevelopable lots currently developed with very small houses
on large lots. On the subject site's total area of 1.17 acres or approximately 50,965 square feet of
land, the existing residential development equals approximate!y 2,000 square feet of floor area.
This is a floor arearatio of approximately 0.04. In terms oflot coverage, it is a building coverage
of 4 percent of the total development area. \
The Zoning Map Amendment encourages new commercial development at a scale that is
compatible with the residential neighborhood and compatible with the adjacent Community
Commercial zoning and designation. Because the amendment to rezone the subject site to
General Office Zoning encourages appropriate new commercial development on vacant and
redevelopable land it is consistent with this refinement plan policy.
Commercial Policy 6. Apply site plan review conditions (Article 31, Springfield Development
Code) to commercial development to : 1) improve the appearance of the Q Street area; and, 2)
minimize conflicts with residentially-designated area.
This policy will be applicable to the subject site contingent upon approval of the proposed
Zoning Map Amendment and the applicant will be required to apply for site plan review as part
of the application process to develop the subject site. At that time the City will have the
opportunity to apply site plan review conditions to improve the appearance of the "Q" Street area
and to minimize conflicts with adjacent residentially designated areas west and north of the
subject site consistent with this policy.
Commercial Policy 9. The General Office refinement plan designation establishes areas to which
the GO - General Office zoning district may be applied. Areas so designated serve as transition
zones, buffering residential development from more intensive commercial development in areas
with commercial plan designations. The General Office refinement plan designation provides
appropriate locations for business and professional offices such as financial, insurance and real
estate services. (Commercial Policy 9 is proposed in the concurrently submitted Refinement Plan
Amendment to the Q Street Refinement Plan. The City Council may approve the proposed
Refinement Plan Amendment prior to its decision with respect to this request for Zoning Map
Amendment. Findings are provided to demonstrate consistency with the proposed policy.)
Findings:
The subject site is clearly located at a transItion between residential and commercial
development as described in Policy #9. Contingent upon approval of the concurrent Refinement
Plan Amendment submitted by the applicant, Policy 9 is enacted, the subject site is designated
with GO General Office plan designation in the Q Street Refinement Plan, the GO General
Office zoning district may be applied to the site per Policy 9, and the amendment is therefore
consistent with this refinement plan policy.
13
18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
Consistency with applicable Plan District maps, Conceptual Development Plans and functional
plans
Findings:
The subject site is not included within any Plan District area or Plan District map and is not
included in any conceptual development plan or functional plan that specifically addresses the
use of the subject site. For this reason and because the Zoning Map Amendment is consistent
with the adopted Refinement Plan it satisfies the approval criterion at SDC 12.030(3)(b).
SDC 12.030(3)(c) The property is presently provided with adequate public facilities, services
and transportation networks to support the use, or these facilities, services and transportation
networks are planned to be provided concurrently with the development of the property.
The Metro Plan Diagram and the Springfield Zoning Map demonstrate that the property is within
the Springfield City Limits. This is a proposed rezoning of existing developed lots within the city
and as such is in-fill development. Adequate public facilities, services and transportation
networks are on site or available to serve the site. Should the proposed use require upgrades to
existing facilities, services or. transportation facilities, such upgrades will be provided
concurrently with property development consistent with the criterion. Urban facilities for which
facility upgrades would require infrastructure improvements include water service, sanitary
sewer, transportation network, stormwater, and electricity. With respect to these services:
Water service:
Water lines are located on the north side of "Q" Street, the east side of 17th Street and the east
side of 18th Street. Springfield Utility Board (SUB) Water Division referral comments
(Springfield File #ZON2006-00050) (Comments of Rebecca Templin, P.E., Civil Engineer-SUB
Water Division) show that SUB has additional capacity available on the east side of 18th Street
to serve the site, the SUB Water Division has no objection to the proposed office development
and any new water services needed for this development will be constructed by the SUB Water
Division.
Sanitary Sewer:
Springfield Public Works staff (comments by Jeff Paschall, civil engineer) indicates a sanitary
sewer line is in "Q" Street and another is in 18th Street, with an 8-inch pipe in 18th Street. Staff
indicated the proposed office use may require a line extension but the sanitary sewer system is
adequate to support the use and any required line extension can be worked out. Any necessary
improvements will be constructed concurrently with site development.
Transportation:
Because this application is concerned with an existing site within the city, any development that
will occur on the site will be in-fill development. The subject site is served by "Q" Street, a
major collector, and by 18th Street, a local street. Because this is a Zoning Map Amendment and
not a development application, the current application won't change the requirement for
transportation services. Although this application does not propose development of the site,
Exhibit 5, (Technical Memo Regarding Vehicle Trip Generation) submitted herewith and
incorporated herein by reference, examines worst case scenarios for development in current
zoning compared with development in the proposed zoning.
14
18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
Comments Jrom Springfield Transportation staff during and after the Development Issues
Meeting for this application (Springfield File #ZON2006-00050) (comments by Gary
McKenney, transportation engineer) indicate that street improvements will be required to serve
the site when it's subsequently developed in General Office zoning but the exact nature of the
street improvements can be worked out when the applicant submits site development plans that
better define site access needs. Therefore, the appropriate time to identify specific necessary
street improvements is during Site Plan Review. Planning staff concurs that the transportation
network is adequate for the proposed amendment and details of upgrading the transportation
network will be worked out during Site Plan Review once the building size and other details are
known. Once the required improvements are identified they will be constructed concurrently
with development of the property and therefore the amendment is consistent with this approval
criterion with respect to transportation networks.
Stormwater:
The city stormwater system has a 15" pipe system at 18th and "Q" Street and an existing ditch on
the east side of 18th Street. Public Works staff indicates (comments by Matt Stouder, Public
Works Engineering) the proposed office use may require improvements or on-site detention and
the appropriate time to identify any necessary stormwater improvements is at time of Site Plan
Review. Construction of additional stormwater capacity to serve the proposed use is planned
concurrently with development of the property.
Electric:
Springfield Utility Board (SUB) Electric Service Center comments in regard to the Development
Issues Meeting for this application (Springfield File#ZON2006-00050) and SUB's electric
service map show that SUB has an overhead primary on the east side of 18th Street and has the
necessary capacity to serve the proposed use.
Fire and Emergency Services
The property is currently served by Springfield Fire and Life Safety and is within the 4-minute
response time area of Station #3 on 28th Street. The proposed use as a professional office
building can be served but will require improvements to the existirtg Springfield Utility Board
w~ter pipes. Fire and Life Safety staff (comments by Fire Marshal Gilbert Gordon) indicates
those improvements will be determined based on the proposed building size, construction
material and other relevant factors during site plan review. Findings of consistency with SDC
12.030(3)(c) that demonstrate that water service to the site is planned to be upgraded
concurrently with the development of the property are incorporated by reference.
As shown by these findings, the property affected by the application has adequate public
facilities, services' and transportation network on-site and adjacent to the site or said facilities,
services and transportation networks will be provided concurrently with development of the
property and therefore the amendment is consistent with the approval criterion. The existing
public infrastructure is unaffected by the proposed Zoning Map amendment. Any necessary
improvements to public facilities, services and transportation network necessary to serve the
proposed use will be determined at time of development application and Site Plan Review and
will take place concurrently with development of the property consistent with this approval
criterion.
15
18th and "Q" Street pro.es - Zoning Map Amendment Application e
Written Statement - March 2, 2007
SDC 12.030(3)(d) Legislative Zoning Map amendments that involve a Metro Plan Diagram
amendment shall:
3. Meet the approval criteria specified in Article 7 of this Code; and
4. Comply with Oregon Administrative Rule (OAR) 660-012-0060, where applicable.
Findings:
The Zoning Map amendment is not a legislative amendment and does not involve a Metro Plan
Diagram amendment so this criterion does not apply.
VI. CONCLUSION '
Based on the above analysis and findings of compliance with approval criteria and adopted plans
and policies, the requested Zoning Map Amendment complies with all approval criteria.
Therefore, the applicant respectfully requests approval as proposed.
If you have any questions about the above application, please do not hesitate to contact the
applicant's representative for this application, Richard M. Satre, AICP, at Satre Associates, P.C.
(465-4721).
16
e
e
18TH AND "Q" STREET PROFESSIONAL OFFICE DEVELOPMENT
ZONING MAP AMENDMENT APPLICATION
EXHIBIT 1: PROPERTY DEEDS
Bargain and Sale Deed
ELT- -z.oclo- 17-
SP06-
KNOW ALL MEN BY THESE PRESENTS, That James Scott McKee, hereinafter called Grantor, for the
consideration hereinafter stated, does hereby grant, bargain, sell and convey to J. Scott McKee, Trustee of the
Quality Financial Planning, Inc. Defined Benefit Pension Plan and Trust, hereinafter, called Grantee, and unto
Grantees' heirs, successors and assigns, all of that certain real property situated in the County of Lane, State of
OREGON, described as follows, to wit:
Lot 32, Ronald Park, as platted and recorded in Volume 14, Page 13, Lane County Oregon Plat Records, in
Lane County, Oregon. Tax Acct 0206084, Map #17-03-25-24-04800
I
To have and to hold the same unto the said Grantee and Grantee's heirs, successors and assigns forever. The
true and actual consideration paid for this transfer, stated in terms of dollars is: $ TO Correct VESTING
TillS INSTRUMENT WILL NOT ALLOW USE OF THE PROPERTY DESCRIBED IN THIS INSTRUMENT IN
VIOLATION OF APPLICABLE LAND USE LAWS AND REGULATIONS. BEFORE SIGNING OR ACCEPTING TillS
INSTRUMENT, THE PERSON ACQUIRING FEE TITLE TO THE PROPERTY SHOULD CHECK WITH THE
APPROPRIATE CITY OF COUNTY PLANNING DEPARTMENT TO VERIFY APPROVED USES AND TO
DETERMINE ANY LIMITS ON LAWSUITS AGAINST FARMING OR FOREST PRACTICES AS DEFINED IN ORS
30.930.
In Witness Whereof, the Grantor has executed this instrument this December ,q\ 2006
~~~ 5~~\\-
ames Scott McKee .
\y\.s-\~
STATE OF OREGON, (County of LANE )ss.
This instrument was aclmowledged before me on December JCl 2006, by
James Scott McKee I
~-R~O}~~.. .
Notary Public for ~ My commission EXPir:s~"9- ;It.\ ;~~.q
Grantor's Name and Address:
James Scott McKee
llOl16th St
Springfield, OR 97477
OFFICiAl SEAL
SHARON A WRIGHT
NOTARY PUBUC:clREGON
COMMISSION NO, 394941
MY COMMISSION EXPIRES JULY 14,2009
Grantee's Name and Address:
J Scott McKee, Trustee
llOl16th St
Springfield, OR 97477
r Division of Chief Deputy Clerk
Lane County Deeds and Re=Qrds
-...
Send Tax Statements to:
Same as Grantee Above
111111111111111111111111111111 111111111111111I111
00869531200600905110010015 10 M
12/19/2006 02: :48 P
RPR-DEED Cnt=1 Stn=S CASHIER 01
$5.00 $11.00 $10.00
l006.0~0511
$26,00
Bargain and Sale Deed
EL T _2..00<0-1 'L
SP06-
KNOW ALL MEN BY THESE PRESENTS, That James Scott McKee, hereinafter called Grantor, for the
consideration hereinafter stated, does hereby grant, bargain, sell and convey to J. Scott McKee, Trustee of the
Quality Financial Planning, Inc. Defined Benefit Pension Plan and trust, hereinafter, called Grantee, and unto
Grantees' heirs, successors and assigns, all of that certain real property situated in the County of Lane, State of
OREGON, described as follows, to wit:
Lot 33, Ronald Park, as platted and recorded in Volume 14, Page 13, Lane County Oregon Plat Records, in
Lane County, Oregon. Tax Acct 0206092, Map #17-03-25-24-04700
To have and to hold the same unto the said Grantee and Grantee'sheirs, successors apd assigns forever. The
true and actual consideration paid for this transfer, stated in terms of dollars is: $ TO Correct VESTING
THIS INSTRUMENT WILL NOT ALLOW USE OF THE PROPERTY DESCRIBED IN THIS INSTRUMENT IN
VIOLATION OF APPLICABLE LAND USE LAWS AND REGULATIONS. BEFORE SIGNING OR ACCEPTING THIS
INSTRUMENT, THE PERSON ACQlJIRING FEE TITLE TO THE PROPERTY SHOULD' CHECK WITH THE
APPROPRIATE CITY OF COUNTY PLANNING DEPARTMENT TO VERIFY APPROVED USES AND TO
DETERMINE ANY LIMITS ON LAWSUITS AGAINST FARMING OR FOREST PRACTICES AS DEFINED IN oks
30.930.
In Witness Whereof, the Grantor has executed this mstrument this December J ~I 2006
~~~ '5c~
J es Scott McKee
I['\,,\~ \~
STATE OF OREGON, (County ofLANE)ss.
This instrument was acla10wledged before me on Decembertq 2001i, by
James Scott McKee
a~ Q_~~
Notary Public for ~ ~ My commission Expires:'\:>1-/ ) I..J- /~.q
Grantor's Name and Address:
James Scott McKee
llOl16th St
Springfield, OR 97477
Grantee's Name and Address:
J Scott McKee, Trustee
llOl16th St
Springfield, OR 97477
OFFICIAL SEAL
SHARON A WRIGHT
NOTARY PUBUC-OREGON
COMMISSION NO, 3fl4941
MY COMMISSION EXPIRES JjJLY 14, 2009
Send Tax Statements to:
Same as Grantee Above
(' Divlsicm of Chief Depuly Clerk 1l00~.OM~10
Lane Counly Deeds and Records , U ~U~
111111 111111 " 111I111111I11111 "11I1111 1111111111 . $26,00
00869536200600905700010018 .
12/19/2006 02:10:46 PM
RPR-DEED Cnl=l Sln=8 C~SHIER 01
$5.00 $11.00 $10.00
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J SCOTT MCKEE
110116TH
SPRINGFIELD, OR 97477
Grantor's Name and Address
J. SCOTT MCKEE
110116TH STREET
SPRINGFIELD, OR 97477
Grantee's Name and Address
After recording return to:
EVERGREEN LAND TITLE CO. r "
P.O. BOX 931 Division of Chief Depuly Clerk 200~.MiiJi
SPRINGFIELD, OR 97477 Lane Counly Deeds and Records g VQ
U\ltil a change is requested, all tax statements sball be
sent to lbe ~XMr A~dr~ 11111I1111111 111111111111111111111111111111111111 $31,00
TITLE NO. S L --r::- Z-ov to -I Z-- 00866459200600877370020024 12/0712006 02: 09: 23 PM
ESCROW NO. RPR-DEED Cnl=1 Sln=4 CASHIER 02
TAX ACCT. NO. 020604302060680206076 $10.00 $11.00 $10.00
MAP NO. 170325240360017032524050001703252404900
WARRANTY DEED - STATUTORY FORM
(INDIVIDUAL OR CORPORATION)
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KNOW ALL MEN BY THESE PRESENTS, That J SCOTT MCKEE
hereinafter called grantor, for the consideration hereinafter stated, to grantor paid by
J. SCOTT MCKEE, TRUSTEE OF THE QUALITY FINANCIAL PLANNING, mc. DEFINED BENEFIT PENSION
PLAN AND TRUST
hereinafter called grantee, does hereby grant, bargain, sell and convey unto the said grantee and grantee / s heirs,
successors and assigns, that. certain real property, with the tenements, hereduaments and appurtenances thereunto belonging
or appertaining, situated in the County of LANE and State of Oregon, described as follows, to-wit:
SEE EXHIBIT A WHICH IS MADE A PART HEREOF BY THIS REFERENCE
To Have and to Hold the same unto the said grantee and grantee / S heirs, successors and assigns forever.
And said grantor hereby covenants to and wuh said grantee and grantee / s heirs, successors and assigns, that grantor is
lrmfully seized in fee simple of the above gra:nted premises, free from all encumbrances
Subject to any and all easements, restrictions and covenants of record
and that grariior will warrant andforever defend the said premises and every part and parcel thereof against the lawful
claims and demands of all persons whomsoever, except those claiming under the above described encumbrances.
The true and actual consideration paidfor this transfer, stated in tenns of dollars, is $ 300,000.00.
"However, the actual conside.ration consists of or includes other property or value given or promised which is (the
whole/part of the) consideration (indicate which). '" (The sentence between the symbols "', if not applicable should be
deleted. See ORB 93.030.)
In construing this deed and where the context so requires, the singular includes the plural and all grammatical changes
shall be implied to make the provisions hereof apply equally to corporations and to individuals. \no
In Witness Whereof, the grantor has executed this instnunent this .=rO -u. duy of "'~e.'rn bQ. '(" .
2~ if a corporate grantor, it has caused us name to be signed and seal affIXed Uy us officers, duly authorized thereto
by order of its board of directors. ..
BEFORE SIGNING OR ACCEPTING THIS INSTRUMENT, THE PERSON TRANSFERRING FEE TITLE SHOULD INQUIRE ABOUT THE PERSON'S
RIGHTS, IF ANY, UNDER CHAPTER 1, OREGON LAWS 2005 (BALLOT MEASURE 31 (2004)). TillS INSTRUMENT DOES NOT ALLOW USE
OF THE PROPERTY DESCRIBED IN THIS INSTRUMENT IN VIOLATION OF APPLICABLE LAND USE LAWS AND REGULATIONS. BEFORE
SIGNING OR ACCEPTING TInS INSTRUMENT, THE PERSON ACQU1RING FEE TITLE TO THE PROPERTY SHOULD CHECK WITH THE
APPROPRIATE CITY OR COUNTY PLANNING DEPARTMENT TO VERIFY APPROVED USES, TO DETERMINE ANY LlMITS ON LAWSUITS
AGAINST FARMlNG OR FOREST PRACTICES AS DEFINED IN ORS 30.930 AND INQUIRE ABOUT THE RIGHTS OF NEIGHBORING PROPERTY
OWNERS IF ANY UNDER CHAPTER I, OREGON LAWS 2005 (BALLOT MEASURE 37 (2004)).
4TT~C~~ N\~,,:
\..s!ATEOFORE~N,COUNTYOF lQ 'r)p~
),s.
~~(\.~~
Notary Public for Or
THIS INSTRUMENT WAS ACKNOWLEDGED BEFORE ME ON ~ V" e~ ~ 't r 30, 20.5::J..b, BY J SCOTT MCKEE
My commission expires: ~tI ~ I ~ \ 4 ;:x:dl
OFFICIAL SEAl.
SHARON A WRIGHT
NOTARY PUBUC-OREGON
COMMISSION NO, 3(1.1941
MY COMMISSION EXPIRES JULY 14, 2009
- i
4 · ...
"",\,l ~ EL T - 50390
Page 1 of 1
Legal Description
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EXIllBIT A
PARCEL 1:
Lots 28, 29 and 30, RONALD PARK, as platted and recorded in Book 14, Page 13, Lane
County Oregon Plat Records, in Lane County, Oregon.
EXCEPT THEREFROM those portions conveyed to the State of Oregon by instruments
Recorded June 6, 1961, Reception No. 34176, and Recorded June 8, 1961, Reception No.
34470, and Recorded June 19,1961, Reception No. 35398, Lane County Oregon Deed
Records, Lane County, Oregon.
PARCEL 2:
Lot 31, PLAT OF RONALD PARK, as platted and recorded in Book 14, Page 13, Lane County
Oregon Plat Records, in Lane County, Oregon.
SAVE AND EXCEPT that portion conveyed to the State of Oregon by Deed Recorded June 14,
, 1961, Reception No. 34998, Lane County Oregon Records. '
\ ll'I'H.JL ,I,J"l L1 I! .l.J._~ 1...1.,., 1 U l I I I I 1..1 J '
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n..... :\~~:_ . - J -.::r r J..... 't", . 1 .~ d:'~H~~o.o~! ~~~ ~:i'O .... "I f ' l....
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Job # 0628 "Q" Street Property ~
Date: 3/02107 -
Drawn: AN
Checked: TS Existing Zonin9.,
Revised: - SATRE
ASSOCIATES
EXHIBIT 4
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Low Density Residential .. Mixed Use Commercial
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Zoning District Boundaries
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_ Public Land & Open Space
Job# 0628 "Q" Street Property ,.
Date: 3/02107
Drawn: AN
Checked: TS f!:Qposed Zoning"
Revised: .. SATRE
ASSOCIATES
- /,,'
'/
BEFORE THE PLANNING COMMISSION
OF THE CITY OF SPRINGFIELD
ORDER AND RECOMMENDA nON
FOR A Q. STREET REFINEMENT PLAN
DIAGRAM/TEXT AMENDMENT AND A
ZO~ING MAP AMENDMENT
RECOMMENDATION TO CITY COuNCIL
+
+
+
+
CASE NO. LRP2007-00012
CASE NO.. ZON200J-OOOll
FINDING, CONCLUSIONS
AND RECOMMENDATIONS
NATURE OF THE APPLICATION
This is a consolidated application for the above referenced case number,s. T~e applicant requests approval'
of a Refinement Plan Text and Diagram Amendment to the Q Street Refinemen(Phin a.nd' a concurrent
Zo.ning Map Amendment on properties identified as Lane County A~sessor's Ma:p,17~b3-25-24, Tax Lots
. . __ '" d,.. '..' .. th
3600,4700,4800,4900 and 5000. Therequest involves five contiguous propert}es at 18 and Q Street. '
Specifically, the applicant proposes to change Refmement Plan designationfromMed~um .Density'
Residential (MDR) to General Office' (GO) and a concurrent zone change from MDRf()'Gn: The
requested Refinement Plan text amendment establishes policy and criteria forlocating,the General Office
designation within the Refmement Plan area. '.', . .:,' ,
1. The subject applications for a Refinement Plan text and diagram ame,rid..m~!ir~nd Zoning Map
. " "..,..... ... lh
Amendment were submitted to the Development Services DepartmeIlton March 5 ,2007, and
deemed as complete on March 19th, 2007. .~ . c :-,,:;~' ,.
,-..-':;...;,.;..,.-;"
-:'. .<~.. """"., ':~-' .
2. The application was submitted in accordance with Section 3.050 ofthe'Springfield Development
Code. Timely and sufficient notice of the public hearing, pursuant ,to ,se_Gti.on, 14.030 of the
, Springfield Development Code, has been provided. ",
th ...., ..,'
3. On May 15 ,2007 a public hearing on the zone change request was hellt The Development
Services Department staff notes including criteria of approval, findings and recommendations,
together with the testimony and submittals of the persons testifying at that hearing have been
considered and are part of the record of this proceeding.
t'
CONCLUSION
On the basis of this record, the proposed amendments are consistent with the criteria of Section 8.030 and
12.030 of the Springfield Development Code. This general finding is supported by the specific fmdings of
fact and conclusions in the attached staff report and attached hereto.
ORDER
It is ORDERED by the Planning Commission of Springfield that approval of Case Number LRP2007-
00012 and ZON2007-0001l, be GRANTED and a RECOMMENDATl J N for approval forwarded to the
Springfield City Council. This ORDER was presented to and pi py the. Planning Commission on '
May 151h, 2007. /.
/
oni.mission Chairperson
, ATTEST: 7
,.AYES:
NOES: f
ABSENT:
ABSTAIN: ,~
. Planning Commission Hearing
May lSt\ 2007
Public Testimony for applications LRP2007-00012 & ZON2007-00011
Public Testimony:
Other than the applicant, there was one additional testimony at the public hearing from
Springfield resident Justine D. Michaud, residing at 1512 T Street, Springfield, Oregon.
Ms. Michaud's testimony related to questions she had about how future traffic issues
would be addressed. ~
Staff's Response:
Staff responded to Ms. Michaud's questions related to traffic by outlining the review
procedures in the site plan review process, of which the applicant will be required to
adhere to during Site Plan review of a new professional office building. Staff noted that
the subject Refinement Plan Amendment application and Zoning Map Amendment
application were reviewed by the City's traffic division and found to be in compliance
with applicable criteria of approval. Future traffic analyses and findings will be required
for specific site plan layout design approval.