HomeMy WebLinkAboutResolution 00-13 02/07/2000
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RESOLUTION NO. 00-13
A Resolution adopting the Springfield Commercial Lands Study as the policy document
guiding the provision of commercial lands within the Springfield Urban Growth
Boundary
WHEREAS, the City of Springfield recognizes the importance of providing commercial
opportunities for the residents of Springfield, and
WHEREAS, Policy 32 of the Economic Element of the Eugene-Springfield Metropolitan
Area General Plan requires that the City complete a Commercial Lands Study prior to
the next major Plan update, and
WHEREAS, the Periodic Review Order issued to the metropolitan Springfield area by
the Land Conservation and Development Commission specifies as a task the
development of a Commercial Lands Study for Springfield, and
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WHEREAS, the Springfield Commercial Lands Study was prepared pursuant to the
provisions of OAR Chapter OAR 660-015-0000(9) and is consistent with the provisions of
this applicable administrative rule as demonstrated in Attachment A, Staff Report and
Findings hereby adopted by reference, and
WHEREAS, the Springfield COrrUnercial Lands Study was reviewed by the Department
of Land Conservation and Development prior to the City Council public hearing, and
with incorporation of comments in Attachment B, found the Study to be consistent with
the Periodic Review Order and Statewide Planning Goals, and
WHEREAS, the Springfield Committee for Citizen Involvement appointed a Citizen
Advisory Committee to assist in the development of the Study, and
WHEREAS, the Study was provided to citizens, special interest groups, organizations
and agencies and their comments are incorporated in the Study, and
WHEREAS, the Springfield Planning Commission conducted a public hearing on the
Study on December 7,1999, and forwarded the Study to the City Council with a
recommendation for adoption, and
WHEREAS, notice of this public hearing was published in the Springfield News on
January 22, 2000, and
WHEREAS, public testimony on this Study made at the public hearing was considered
in the Council decision on this matter.
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ATTACHMENT A
STAFF REPORT AND FINDINGS
APPLICANT
CITY OF SPRINGFIELD (Jo. No. 1999-11-289)
REQUEST
ADOPTION OF THE SPECIAL STUDY, SPRINGFIELD COMMERCIAL LAND STUDY
BACKGROUND
The SCLS implements Policy.32 of the Metro Plan Economic Element, "Conduct a Commercial Lands
Study prior to the next major plan update" for the portion of the Metro area within the Springfield UGB.
The purpose of the Springfield Commercial Lands Study (SCLS) is to implement Policy 32 of the Eugene-
Springfield Metro Area General Plan (Metro Plan) and update the commercial buildable lands inventory
for the portion of the Metro Area within Springfield's urban growth boundary (UGB). The SCLS will help
ensure that Springfield's long-term supply of land available for commercial development is adequate to
meet the community's commercial economic development needs in terms of both quantity and quality.
The SCLS is a special study required by the Department of Land Conservation and Development
(OLCD). DLCD has recommended City adoption of the SCLS and has stated that the document complies
with the requirements of Statewide Planning Goal 9. The intent of Springfield's adoption of SCLS is to
make no substantive changes to the Metro Plan or the Springfield Development Code, but to adopt the
SCLS as a policy document that will implement future amendments to the City's guiding documents to
implement commercial development reflective of the community's needs.
CRITERIA OF APPROVAL
SDC 8.030 specifies the criteria that must be met by the Springfield Planning Commission and City
Council in reaching a decision to adopt a special study. Findings must be adopted by elected officials
that demonstrate compliance with the specific criteria of approval in accordance with SDC 8.030; that the
special study is consistent with 1) the Metro Plan, 2) applicable state statutes, and 3) applicable
State-wide Planning Goals and Administrative Rules.
SDC 8.030(1) THE METRO PLAN
The Metro Plan contains separate elements addressing areas 'such as housing, economics,
transportation, and public facilities. The SCLS supports policies in several of these elements, which are
addressed separately as following.
RESIDENTIAL LAND AND HOUSING ELEMENT
The Residential Land Use and Housing Study, adopted February 1999, updates the Residential Land
Element of the Metro Plan. The Study has several policies that are supported with the policies and
strategies from the SCLS. These are grouped into similar categories and addressed as follows:
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ATTACHMENT A-:1
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Residential Density
Policy 9: "Promote higher density residential inside the urban growth boundary that utilizes
existing infrastructure, improves the efficiency of public services and facilities, and
conserves rural resource lands outside the urban growth boundary."
Policy 10: "Generally locate higher density residential development near employment or
commercial services, in relationship to major transportation systems or within
transportation-efficient nodes."
Policy 11: "Coordinate higher density residential development with the provision of adequate
infrastructure and services, open space, and other urban amenities."
Policy 12: "Increase overall residential density in the metropolitan area by creating mor,e
opportunities for effectively designed in-fill, redevelopment, and mixed use while
considering impacts of increased residential density on existing and historic
neighborhoods. "
Findings:
1. The SCLS is consistent with the Residential Land and Housing Study as the SCLS directs the City to
encourage infill, higher intensity development, and redevelopment in strategic areas of the City that
combines a mix of uses.
2. The SCLS contains policies that direct the City to invest capital improvements into identified areas
suited to higher intensity development, and to increase the densities of commercial, residential and
industrial (where appropriate) in these identified areas.
3. The SCLS contains policies that direct the City to develop design guidelines for Neighborhood
Commercial development, to ensure compatibility and consistency of scale with existing
neighborhoods.
Design and Mixed Use
Policy 21: "Expand opportunities for a mix of uses in newly developing areas and existing
neighborhoods through local zoning and development regulations."
Policy 22: , "Reduce impacts of higher density residential and mixed use development on
surrounding uses by considering site, landscape, and architectural design standards
or guidelines in local zoning and development regulations."
Findings:
1. ' The SCLS is consistent with the policies in the Residential Element that address design and mixed
use. The SCLS promotes the application of a Mixed Use Zoning District, which will ensure a mix of
higher density housing in conjunction with commercial and employment opportunities. Policy 3-A of
the Study states, "Redesignate and rezone portions of industrial land or residential land within
identified.... nodes to Mixed Use Commercial to achieve the objectives of the TransPlan,
Transportation Planning Rule 12, and to incorporate higher intensity development in conjunction with
residential and employment opportunities."
2. The SCLS promotes the compatibility between residential and commercial uses. The Study notes a
trend towards greater use of the Neighborhood Commercial Zoning Oistrict in the future, to serve
neighborhoods with convenient commercial services provided at a scale, which suits or complements.
the existing neighborhoods.
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3. Specifically, Policy 1 O-A of the SCLS states "Adopt design guidelines for the Neighborhood
Commercial Zoning Oistrict that assures neighborhood compatibility." The policies of the SCLS will
assist in ensuring that neighborhood compatibility between residential and commercial uses is
achieved.
ECONOMIC ELEMENT
The Economic Element of the Metro Plan contains guiding policies that are supported by the policies
proposed in the SCLS. These are as follows:
Policy 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." (p. III-B-5)
Finding: The SCLS supports policies in the Economic Element of the Metro Plan that direct the City to
provide commercial land supplies proportional to the demonstrated demand. The Study
directs the City through policies such as 1-A and 1-B to provide sufficient land to meet the
future demand for commercial land.
Specifically, Policy 1-A states, "Maintain a mixed supply of large and small commercial sites
through strategies such as rezoning or annexation to serve Springfield's future population".
Policy 1-B states, "Ensure that an adequate amount of commercial land is designated in
undeveloped identified nodes such as Jasper/Natron and McKenzie/Gateway, to
accommodate a portion of the demand for comme~cial acreage, and to implement the policies
and objectives of the TransPlan."
Policy 14: "Continue efforts to keep the Eugene and Springfield central business districts as vital
centers of the metropolitan area." (p. III-B-5)
Finding: The SCLS contains policies and strategies to encourage redevelopment, which will assist in
revitalizing downtown Springfield. The SCLS contains policies that encourage more intense
development, and that make redevelopment more financially feasible for developers, also
noting that public investment may need to be concentrated in areas where redevelopment is
suitable, and rezoning recommended where appropriate.
Specifically, SCLS Policy 4-A states, "Facilitate redevelopment by adopting a combination of
strategies which reduce barriers, streamline the approval process, provide incentives and
reduce costs, thereby improving the market for higher intensity redevelopment."
Recommended implementation strategies such as a redevelopment workshop, and targeting
specific areas for redevelopment and capital improvements will assist in revitalization and
redevelopment of Springfield's downtown core and other areas of the City in need of
assistance.
Policy 16: "Utilize processes and local controls which encourage retention of large parcels or
consolidation of small parcels of industrially or commercially zoned land to facilitate
their use or reuse in a comprehensive rather than piecemeal fashion." (p. III-B-5)
Finding: The SCLS supports this policy by retaining the MRC zoning district to protect some of the
remaining larger tracts of commercial land in the UGB, and by directing the City to investigate
the aggregation of parcels along Main Street.
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Policy 23: "Provide for limited mixing of office, commercial, and industrial uses under procedures
which clearly define the conditions under which such uses shall be permitted and
which: (a) preserve the suitability of the affected areas for their primary uses; (b) assure
compatibility; and (c) consider the potential for increased traffic congestion." (p. III-B-6)
Finding: The SCLS supports this Metro Plan policy by directing the City to increase the intensity and
mix of uses within appropriate areas by applying a Mixed Use Zoning District within the areas,
to achieve the objectives of nodal development. The Mixed Use District will provide guidelines
to ensure that various uses are compatible.
Policy 27: "Eugene, Springfield, and Lane County shall improve monitoring of economic
development and trends...." (p. III-B-6)
Finding: The SCLS is consistent with this Metro Plan policy by recommending the City implement a
monitoring system that tracks the absorption of commercial land by acreage as it is developed,
and that this data is available on an ongoing basis.
Policy 32: "Conduct a Commercial Lands Study prior to the next major plan update."
Finding: The SCLS supports Policy 32 of the Metro Plan as it completes this task for the Springfield
UGB.
Policies 22, 28, and 29 of the Economic Element relate specifically to Neighborhood Commercial
development and will be addressed together.
Policy 22: "Review local ordinances and revise them to promote greater flexibility for promoting
appropriate commercial development in residential neighborhoods." (p. III-B-6)
Policy 28: "Recognize the vital role of neighborhood commercial facilities in providing services
and goods to a particular neighborhood." (p. III-B-6)
Policy 29: "Encourage the expansion or redevelopment of existing neighborhood commercial
facilities as surrounding residential densities increase or as the characteristics of the
support population change." (p. III-B-6)
Findings:
1. The SCLS supports increasing the amount of neighborhood commercial developments within existing
neighborhoods by providing implementation strategies that direct the City to develop design
guidelines for Neighborhood Commercial Zoning District. Policy 10-A of the Study states, "Adopt
design guidelines for the Neighborhood Commercial Zoning District that assures neighborhood
compatibility." (p. 40)
2. The SCLS promotes the compatibility between residential and commercial uses. The Study notes a
trend towards greater use of the Neighborhood Commercial Zoning District in the future, to serve
neighborhoods with convenient commercial services provided at a scale which suits or complements
existing neighborhoods.
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ENVIRONMENTAL RESOURCES ELEMENT
The SCLS contains policies that are consistent with those in the Environmental Resources Element of the
Metro Plan that pertain to commercial development. These are addressed together as follows:
Policy 18: "Local governments shall develop plans and programs which carefully manage
development on hillsides and in water bodies, and restrict development in wetlands in
order to protect the scenic quality, surface water and groundwater quality, forest
values, vegetation, and wildlife values of those areas." (p. III-C-9)
Policy 20: "In order to improve water quality and quantity in the metropolitan area, local
governments shall consider developing regulations or instituting programs to:
b. improve management of industrial and commercial operations to reduce negative
water quality and quantity impacts; ..
c. regulate site planning for new development and construction to better control
drainage and erosion and manage storm runoff; .
d. increase storage and retention of storm runoff to lower and delay peak storm
flows." (p. III-C-10)
Findings: The SCLS is consistent with the policies pertaining to natural resource protection contained in
the Environmental Resources Element of the Metro Plan. Although commercial land is valuable
and scarce in the Springfield UGB, the City will continue to comply with federal and state
mandates and implement provisions for protection of natural resources, not only to comply with
these mandates, but also to improve the quality of these natural resources as urban
development continues. Policy 7-A of the Study states, "Facilitate more efficient use of
commercial land by allowing on-site methods of stormwater pretreatment that use less of the
developable portion of commercial land, within the parameters of state and federal mandates".
The City will continue to require on-site stormwater treatment facilities where applicable.
TRANSPORTATION ELEMENT
Policy 2 of the Transportation Element of the Metro Plan is supported by the policies in the SCLS,
discussed as follows:
Policy 2: "The following recommendations are, from a transportation standpoint, geared toward
reducing transportation energy demand and improving opportunities for using alternative
modes, such as urban public transit, bicycle, pedestrian, and paratransit. These
recommendations stress the need to increase residential densities and to locate places of
employment and residences in proximity to on another.
a. Growth of downtown Eugene and Springfield as commercial, residential, civic,
and employment centers shall be encouraged.
e. Existing employment centers shall be encouraged to grow and diversify by
allowing and concentrating new commercial, governmental, and light industrial
uses, where appropriate, in those centers.
1. Development and redevelopment shall be encouraged in designated areas
which are relatively well served by the existing or planned urban transit
system.
Finding: The SCLS supports the strategies from the Transportation Element of the Metro plan, by
encouraging compact urban development.
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Specifically, Policy 3-A of the Study states, "Redesignate and rezone portions of industrial land
or residential land within identified Employment Center, Neighborhood Center, or Commercial
Center nodes to Mixed Use Commercial to achieve the objectives of TransPlan, Transportation
Planning Rule 12, and to incorporate higher intensity development in conjunction with residential
and employment opportunities."
CONCLUSION
The following sections of the Metro Plan have been cited above: Residential Lands and Housing Element
policies, Economic Element policies, Environmental Resources policies, and the Transportation Element
policies. The preceding analysis confirms the consistency of the SCLS with the Metro Plan.
SDC 8.030 (2) APPLICABLE STATE STATUTES
The intent of Springfield's adoption of the SCLS has been to make no amendments or substantive
changes to the Metro Plan or the Springfield Development Code; however, policies and implementation
strategies will be adopted with the Study that instruct the City to
SDC 8.030 (3) APPLICABLE STATE-WIDE PLANNING GOALS AND ADMINISTRATIVE RULES
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."
Goal 1 is intended to ensure that citizens are involved in all stages of the planning process. The following
summarizes the major citizen involvement opportunities in the development of the SCLS:
1 . Springfield citizens were involved throughout the process of completing the SCLS. A Citizen Advisory
Committee (CAC) met regularly to review and discuss issues regarding the state of Springfield's
commercial land. The CAC was mainly representative of commercial real estate developers and
representatives of Springfield's Planning Commission and City Council. The CAC met from the
beginning of the SCLS in summer, 1995 through the year 1999. The CAC provided valuable input,
which was critical to the development of practical, realistic policies and implementation strategies.
3. A public hearing was held before the Springfield Planning Commission on December 7, 1999. A
public hearing before the Springfield City Council will beheld February 7,2000.
4. All written comments received were incorporated into the record.
Finding: Springfield's adoption of the SCLS is consistent with and follows the procedures outlined in the
Springfield Code pertaining to citizen involvement, thus conforming to establish citizen
involvement procedures consistent with Goal 1.
Goal 2 Land Use Planning: "To establish a land use planning process and policy framework as a
basis for all decisions and actions related to use of land and assure an adequate factual
base for such decisions and actions."
Finding: Springfield's adoption of the SCLS is consistent with Statewide Planning Goal 2 because it
establishes policy framework for future land use decisions pertaining to commercial
development.
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Goal 3 Agricultural Land: "To preserve and maintain agricultural lands."
There are no lands designated for agricultural use in Springfield.
Finding: Goal 3, Agricultural Land, does not apply because there are no lands designated for agricultural
use in Springfield.
Goal4 Forest Land: "To conserve forest lands by maintaining the forestland 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."
There are no lands designated for forest use in Springfield.
Finding: Goal 4, Forest Land, does not apply because there are no lands designated for forest use in
Springfield.
GoalS Open Spaces, Scenic And Historic Areas, And Natural Resources: "To conserve open
space and protect natural and scenic resources."
Finding: Springfield's adoption of the SCLS does not change Goal 5 inventoried resources and thus does
not affect compliance with 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: Springfield's adoption of the SCLS does not substantively change air, water, and land quality in
Springfield and thus does not affect compliance with Goal 6. .
Goal 7 Areas Subject To Natural Disasters And Hazards: "To protect life and property from natural
disasters and hazards."
Finding: Springfield's adoption of the SCLS does not change .Goal 7 inventoried areas subject to natural
disasters and hazards and thus does not affect compliance with Goal 7.
Goal 8 Recreational Needs: "To satisfy the recreational needs of citizens of the state, visitors, and
where appropriate, provide for siting of necessary recreational facilities including destination
resorts."
Finding: Springfield's adoption of the SCLS does not substantively change the need for the City's
recreational needs and thus does not affect compliance with Goal 8.
Goal 9 Economy Of The State: "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: The SCLS is in compliance with all requirements of Goal 9, Economic Development, as noted by
DLCD in Attachment C of this report.
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Goal 10 Housing: "To provide for the housing needs 01 the citizens of the state."
Finding: Springfield's adoption of the SCLS does not substantively change the need to provide housing
and thus does not affect compliance with Goal 1 O.
Goal 11 Public Facilities And Services: "To plan and develop a timely, orderly and efficient
arrangement of public facilities and services to serve as a framework for urban and rural
development."
Finding: Springfield's adoption of the Commercial Lands Study does not substantively change the public
facilities element at this time. .
Goal 12 Transportation: "To provide and encourage a safe, convenient, and economic
transportation system."
Finding: The SCLS supports Goal 12 provisions because it contains policies and strategies that support
the concept of nodal development, which reduces the reliance on the automobile and provides
more compact urban development.
Goal 13 Energy Conservation: "To conserve energy."
Goal 13 encourages land use patterns that allow people to live, work, shop, and recreate in the same
geographic area. The SCLS encourages a mixed-use development pattern that accommodates
industrial, commercial, and residential in the same area. These mixed use areas along transit lines
promote energy conservation through the use of transit services and smaller-scale commercial.
Finding: Springfield's adoption of the SCLS does not substantively affect the conservation of energy and
thus does not affect compliance with Goal 13.
Goal 14 Urbanization: "To provide for an orderly and efficient transition from rural to urban land
use."
Finding: Springfield's adoption of the SCLS does not substantively affect the transition from rural to urban
land and thus does not affect compliance with 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 Greenway."
Finding: Springfield's adoption of the SCLS does not substantively affect the Willamette River Greenway
and thus does not affect compliance with Goal 15.
Goal 16 Estuarine Resources: "To recognize and protect the unique and environmental,
economic, and social values, diversity and benefits of Oregon's estuaries."
Finding: Goal 16, Estuarine Resources, does not apply because there are no lands designated for
estuarine resources in the Springfield UGB.
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Goal 17 Coastal Shorelands: "To conserve, protect, where appropriate, develop and where
appropriate restore the resources and benefits of all coastal shorelands, recognizing
their value for protection and maintenance of water quality, fish and wildlife habitat,
water-dependent uses, economic resources and recreation and aesthetics. The
management of these shore land areas shall be compatible with the characteristics of the
adjacent coastal waters; and
To reduce the hazard to human life and property, and the adverse effects upon water
quality and fish and wildlife habitat, resulting from the use and enjoyment of Oregon's
coastal shorelands."
Finding: There are no lands designated for coastal shorelands in the Springfield UGB and thus the
adoption of the SCLS does not affect compliance with Goal 17.
Goal 18 Beaches and Dunes: "To conserve, protect, where appropriate develop, and where
appropriate restore the resources and benefits of coastal beach and dune areas; and
To reduce the hazard to human life and property from natural or man-induced actions
associated with these areas."
Finding: Goal 18, Beaches and Dunes, does not apply because there are no lands designated for
beaches and dunes in the Springfield UGB.
Goal 19 Coastal Resources: "All local, state, and federal plans, policies, projects, and activities
which affect the territorial sea shall be developed, managed and conducted to maintain,
and where appropriate enhance and restore, the long-term benefits derived from the
nearshore oceanic resources of Oregon. Since renewable ocean resources and uses,
such as food production, water quality, navigation, recreation, and aesthetic enjoyment,
will provide greater long-term benefits that will nonrenewable resources, such plan and
activities shall give clear priority to the proper management and production of renewable
resources."
Finding: Goa/19, Ocean Resources, does not apply because there are no lands designated for ocean
resources in the Springfield UGB.
APPLICABLE ADMINISTRATIVE RULES
The SCLS complies with the requirements of OAR 660-15-000(9), and recommends policies that comply
with OAR 660-012-045, the Transportation Planning Rule, as well.
Finding: The SCLS is in compliance with the applicable administrative rules.
CONCLUSION
The following applicable Statewide Goals have been cited: 1, 2, 9, 11, 12, 13, and OAR 660-15-0000(9)
and OAR 660-12-045. The preceding analysis confirms the consistency of theSCLS with the Statewide
Goals and Administrative Rules.
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RECOMMENDATIONI REQUESTED ACTION
The Land Conservation and Development Commission has recommended City adoption of the SCLS and
has stated that the document complies with the requirements of Statewide Planning Goal 9. The intent of
Springfield's adoption of SCLS is to make no substantive changes to the Metro Plan or the Springfield
Development Code, but to adopt the SCLS as a policy document that will implement future amendments
to the City's guiding documents to encourage responsible commercial development.
The SCLS has been found to be in compliance with SDC 8.030 criteria: 1) the Metro Plan, 2) applicable
state statutes, and 3) applicable Statewide Planning Goals and Administrative Rules.
Staff recommends that the City Council adopt the SCLS for these reasons.
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AlTACHMENT 8
List of Changes to the Draft based on OLCO Comments
· p.8: Added footnote for redevelopment determination methodology.
· p. 10: Added footnote: Table 2-1 should be revisited 'and updated every few years.
· p. 13: Added section on the positive benefits of redevelopment:
1"-""':P;f".'''':r'-''''i'~''i~{I",,,,,,<',~m''''''"'W''''~'''''''.l'''~_''F'I'''':,<,~,::q<",~'m~;w~,
:'o'iiii'ij'fitsfia'ffc/1JS'iliifie'fs1[ti:J Redevelo ment aRQ AssfJ6iated Barriers
,.,.., ",""""""'W',,,,,,,,,,,,,,~,,.,,_,.,,,,,,,,,',,,,~,",'"""'..,"" 'P
Statewide Planning Goal 9 requires that commercial land studies include an
II' nVde~tory of red~R".~~!,gg~ble commercial land in the total devel~pable commercial
an Inventor . 'e e '
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· p.14: Under number 5, revised to reflect the new fee schedule, which is pro-rated
for smaller sites as the schedule assesses a greater site plan review fee for larger
developments with more impervious surface.
5. Fccs and chargcs for development rClict'" arc not pro ratcd for tr.c sizc of thc
dCTlclopmcnt. For instance, thc Sitc RCT,'ie'w tec is as expensivc for J. large
building than for a smaller dClelopment. Conscqucntly, t ~e development of
infill lots or smaller sites is often not financially' feasible given the costs of '
development in relation to the future income generated. To achieve smaller-scale
commercial development, the City must encourage it by offering financial
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incentives for redevelopment, and by removing barriers in the SDC !9ll;i~
~~x~I~R~~U~;Q~~~~!!~K!l~f~.
· p. 18: Added language linking revitalization of Downtown and redevelopment:
While extensive redevelopment has not been evidenced over the past planning
period, a greater focus on infill strategies will improve the market for,
redevelopment. It is also important to remember that there is a qualitative
component to the Study, aside from the quantitative. For this reason, it is important
, for the City to aggressively pursue strategies to encourage redevelopment, and to
establish policies that ensure more intensive, efficient use of commercial land, and to
establish a system for iden~t12~~"~I~~9.~~,~ClI, and re~,~?er:~,~!_~EClE,~;c~~,,,,,~,~~!~~~ for
i.~A1ji~:.iil~~*. 'o,.t3"~~.,.
ATTACHMENT B-1
· p. 18: Paragraph 2, "ml~miS!miM~ ~verestimating the amount of commercial land
can create a surplus, encouraging low intensity, inefficient development patterns;
but also ensures greater choice in the market.
· Beginning on p. 23, where the phrase" Asian Crisis" occurred, it was changed to
" Asian economic downturn".
· p. 32: under the Discussion section of "New Commercial Development", the word
"north" was added to west, describing the migration of the population:
Population and employment forecasts indicate that while rapid growth rates are
expected to level off, the U.s. population is expected to continue to move !1t~II:)~
west, attracted by a strong combination of jobs, wages, quality of life, and cost of
living. '
· p. 32: Under the same section, the growth rate of 1.5 percent was changed to 1.7
percent:
Th~,population of the Metro Area is expected to grow at an average annual rate of
1.S ~ percent per year, generating a population between 291,000 and 311,000 by the
year 2015.
B-2
regon
John A. Kilzhaber, M.D" Governor
January 27,2000
Susanna Julber
Planning Division
Springfield Development Services Department
225 Fifth Street
Springfield, Oregon 97477
. Subject:
Department of Land Conservation and Development
635 Capitol St. NE, Suite 200
Salem, Oregon 97301-2540
Phone (503) 373-0050
Director's Fax (503) 378-5518
Main Fax (503) 378-6033
Rural/Coastal Fax (503) 378-5518
TGM/Urban Fax (503) 378-2687
Web Address: http://www.lcd.state.or.us
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Draft Commercial Lands Study / Comments
Dear Susanna:
Thank you for yours and Mel Oberst's time yesterday to discuss the City of Springfield's draft
commercial lands study. The department appreciates the hard work you, city staff and citizens
have put into the study.
As a whole, the department finds that the November, 1999 draft is complete and will comply
with the requirements of Goal 9 - Economic Development when locally adopted. During
yesterday's discussion, we commented on several minor improvements that could be made to the
final plan. I trust that you will pass these on for local consideration before final adoption.
Again, congratulatio~ on work well done. If you have any questions, do not hesitate to call me at
503/373-0050 ext. 224.
Sincerely,
~{ U?((
Mark Radabaugh
Willamette.Valley Urban Representative
c: Carol Hinkel, LCOG
Periodic Review file: Brenda Cansler
ATTACHMENT C-1
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Springfield Commercial Lands Study
. ~,
City of Springfield
Development Services Department
February 2000
ATTACHMENT E-1
The Springfield Commercial Lands Study was initiated in 1995. The Study was
conducted by Springfield Development Services Staff with the guidance of a Citizen
Advisory Committee.
Citizen Advisory Committee
Richard Boyles, Sycan B. Corp.
Jeff Cole, Springfield Planning Commission Representative
Blake Hastings, Emerald Property Investments
Lyle Hatfield, Springfield City Council Representative
Doug McKay, McKay Investments
Larry Olson, Olson and Morris
Rick Satre, Satre Associates, PC
Bonnie Ullmann, Springfield Citizen
Springfield City Council
Maureen M. Weathers, Mayor
Anne Ballew
Tammy Fitch
Lyle D. Hatfield
Sidney Leiken
Christine Lundberg
Fred Simmons
Springfield Planning Commission
Jim Burford
William Carpenter
Jeff Cole
Steve Moe
Tim Malloy
Dave Ralston
Sean Wilson
For more information about the Study, or to receive copies of this Draft, contact:
Susanna Julber, Planner II
City of Springfield Development Services Department.
255 Fifth St.
Springfield, Oregon 97477
(541) 726-3753
Springfield Commercial Lands Study
Table of Contents
Report Summary
Chapter One: Introduction
Purpose
Compliance with Goal 9 and Other Applicable State Law
Citizen Involvement
Relationship to the SCLS and Other Studies and Plans
Significance of the Transportation Planning Rule
Study Scope/ Contents
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2.
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7
Chapter Two: Supply of Commercial Land in Springfield
. Introduction
Development Constraints Analysis
Serviceability Analysis
Vacant Land Inventory Changes Since 1995
Benefits and Barriers to Redevelopment
Inventory of Redevelopable Land
Summary
8
8
9
10
11
13
15 .
16
Chapter Three: Demand Analysis
Introduction
Summary of the Demand Analysis
Review of National, State, and Local Trends
National Trends
State Trends
Eugene-Springfield Metro Area Trends
Conclusions of the Demand Analysis
18
18
18
23
24
25
27
31
Chapter Four: Findings, Policies, Implementation Strategies
New Commercial Development
Rezoning and Redesignating
Redevelopment and Infill Development
Efficient Use of Commercial Land
Plan-Zone Conflicts
Implementation Schedule
32
32
35
36
37
39
41
Appendix A: Vacant Land Inventory Methodology
Appendix B: Detailed Employment Projections
Appendix C: Sites with Planl Zone Conflicts
Report Summary
\
Background
The primary objective of the SCLS is to ensure that Springfield's long-term supply of land
available for commercial development is adequate to meet the community's economic
development needs in terms of both quantity and quality to the year 2015.
The SCLS was developed within the parameters of state land use laws, the Eugene-Springfield
Metro Area General Plan (Metro Plan), the Springfield Development Code and the City's other
relevant planning documents and refinement plans. Unde~ Goal 9, local 'jurisdictions are
required to assess community economic potential; include policies in their comprehensive or
general plan pertaining to economic development objectives; identify the number of sites and
acreage needed in appropriate categories; provide an adequate long-term supply of commercial
land; and protect needed sites with appropriate plan designation and zoning.
While an exact figure of commercial acreage will not be "set aside" for future commercial
development as a result of this Study, the SCLS contains policies, implementation strategies,
and recommended amendments to the Springfield Development Code that will help ensure that
Springfield has an adequate supply of commercial land. These policies and strategies are based
on community objectives and state requirements and were developed by a Citizen Advisory
Committee (CAe) comprised primarily of real estate professionals, and representatives of the
Springfield Planning Commission and City Council who met regularly throughout the
development of the SCLS. The SCLS was developed in accordance with Springfield's adopted
citizen involvement program.
The SCLS will assist in providing the citizens of Springfield with the types of commercial
development that will be compatible with their neighborhoods and will meet their needs. The
Study is developed within the following guiding statement from the Metro Plan:
"Implicit in the goals and objectives that follow is the premise that the economic
health of the area is integrally related to the quality of life for residents.
Improved welfare of the residents of the metropolitan area, measured by
increases in employment opportunities and reductions in unemployment,
increases in real incomes, and improved environmental quality are the ultimate
goals of all economic efforts. Economic growth or industrial expansion is
acceptable when it is consistent with these goals and objectives." (Metro Plan
Economic Element, page III-B-l)
The SCLSis one of eighteen work tasks in the Metro Area's current Periodic Review Work
Program, approved by DLCD in 1994..
Executive Summary: Springfield Commercial Lands Study
Summary
The findings of the Springfield Commercial Land Study (SCLS) indicate that Springfield's long
term supply of developable commercial land is limited, in terms of both quality and quantity, to
meet the projected demand to the year 2015.
To better develop policies and strategies that will assist in providing opportunities for
successful commercial development into the future, the project was overseen by a CAC,
composed of several professionals from the real estate and development community of
Springfield. These professionals are currently active in real estate marketing and commercial
land development which affords them a particularly informed understanding of commercial
land supply and demand in Springfield.
The committee worked on the study for over four years, evaluating the commercial land
inventory site by site, reviewing the population and employment data and subsequent
projections for commercial land demand, and analyzing real absorption rates and
redevelopment potential. Their recommendations were used as the base for the development of
realistic policies and strategies that the City could undertake to preserve and increase the
commercial land supply.
Significant Findings
· Statewide Planning Goal 9 requires that the City of Springfield provide an adequate amount
of commercial land to meet the projected need for commercial development for the planning
period. 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.!
Size, location, and service limitations further limit this inventory. Roughly 30 acres are
contained in the former Springfield airport site, and over 18 are in unserviced areas of
Jasper/Natron and McKenzie/Gateway. The remaining vacant land inventory of 34 acres is
in smaller, desegregated sites.
· During the period of August 1995 to early 1999, commercial land in Springfield was
developed at a rate of 36 acres per year. This high rate of absorption reflects the rapid
growth rate in the State and the Metro Area during this same period.
· Based on comparison with other cities, a figure of 17 acres per year seems reasonable.
Although straight comparison is not completely reliable because of varying population
growth rates, industry growth rates, and other factors, comparison with other cities does
I This figure is based on a 15-year time frame to 2015, the CLS was started in 1995, and was based on a 20-year
period to 2015. .
Executive Summary: Springfield Commercial Lands Study
11
provide a rough estimate of a reasonable amount of commercial land to provide into the
future.
1. Medford (1997 population 57,610), for example, calculated a need for 16 acres per year,
basing their analysis on the past absorption rate of commercial land.
2. Hillsboro (1997 population 58,365) noted the demand for between 10 and 22 acres of
commercial land per year in their commercial land analysis. '
3. In 1992, the City of Eugene Commercial Land Study estimated that 532 acres, roughly 26
acres per year, would be needed to meet the 20-year demand. This figure was based on
employee/acre ratios. Eugene (1997 population 129,300) assumed that 25 acres of this
demand would be met through infill and redevelopment, primarily occurring close to
the downtown area.
4. Bend (1997 population 33,740), in their evaluation of commercial land, estimated that
they would need roughly 30 acres per year, based on past absorption rates.
· Redevelopment and infill development is often expensive and problematic for developers,
because of existing land use, traffic patterns and infrastructure limitations.
· There are smaller parcels in the City, particularly along Mam Street within identified
TransPlan nodes,' that are suitable for infill development or redevelopment; however,
development costs of these sites is often prohibitive due to infrastructure and improvement
costs, and physical limitations of the lots themselves.
· Although Oregon's rapid growth is expected to level off slightly, the U.S. population
continues to move west, attracted by a strong combination of jobs, wages, quality of life, and
cost of living. Based on economic trends, the rate of population growth and in-migration are
projected to level off, but remain constant in coming years. State and local economic
forecasts indicate that decreasing household size, in combination with an aging population,
will create a demand for smaller types of housing, which may spur a need for more
neighborhood commercial development to serve these residential developments.
Where undeveloped areas are annexed into the City, commercial areas will be developed to
serve these new areas. There is a need for a supply of both larger and smaller sites to
provide choice, diversity and economy in the marketplace.
· Both the Metro Plan and TransPlan stress the implementation of more compact urban
development within the Metropolitan Area. Amendments to the Springfield Development
Code may need to be adopted to achieve higher density development and to attain infill
development in the identified TransPlan nodes or other suitable areas of the City.
· High intensity commercial development is difficult to achieve with current SDC
requirements for parking. The parking minimums in the Springfield Development Code are
high, and parking is expensive and difficult to provide on small sites. Exempt parking in
Executive Summary: Springfield Commercial Lands Study
III
districts such as Downtown Springfield has been successful, and shared parking lots would
help alleviate some of the demand for parking.
· Requirements for surface stormwater detention systems and bioswales, necessary to achieve
state and federal regulations to protect water quality, utilize a portion of developable
commercial land, which is limited in supply in Springfield's UGB.
· Commercial development in Glenwood is limited to its full potential by service and other
unknown constraints, as well as the existing development patterns.
· There are vacant sites that are zoned but not designated in the Metro Plan for commercial
use, just as there are vacant sites designated for commercial use that do not have
commercial zoning, creating uncertainty for developers and delays in the approval process.
· The Major Retail Commercial Zoning District is important to retain the district and
designation to protect some of the larger tracts of commercial land.
· The Neighborhood Commercial Zoning District, while intended to provide smaller-scale
commercial that meets the needs of neighborhood residents, is not widely used in
Springfield. In the past, applications for the NC district have been met with neighborhood
opposition because there are no design standards to ensure that the commercial will
complement or fit in with the existing neighborhoods.
Significant Recommendations
· The CAC noted that a figure of 255 acres should be a low-end estimate, based upon more
recent commercial development activity. Given recent patterns of development, the CAC
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.
· The Committee recommended throughout the course of the completing the SCLS that
redevelopable land be considered independently of the vacant land.demand. While 62 acres
of land within the TransPlan nodes meet the criteria in the TransPlan for redevelopment, the
CAC asserts is unlikely that substaritive redevelopment will occur within the scope of this
Study. Based on recent trends, the CAC recommends that 20 percent of this amount, 12 '
acres, be relied on for the purposes of estimating redevelopment during the 15 years.
It is reasonable to assume that the rate of redevelopment can be stimulated by public policy.
Public investment via the CIP process can be used to implement the development of the
TransPlan nodes by improving infrastructure such as sewer, storm drainage, and pedestrian
and traffic safety. It is important, therefore, to adopt City policies and implementation
strategies to facilitate redevelopment in designated nodes.
Executive Summary: Springfield Commercial Lands Study
IV
· In addition to the shortfall in the supply of commercial land, the CAC identified a second
concern regarding the lack of quality developable parcels. While numeric comparisons are
useful to calculate demand, it is also important to evaluate the quality of the remaining sites
and the opportunity for quality redevelopment with the expected future demand for
various types of commercial development.
· The CAC noted the importance of developing a land use monitoring system to track the sale
and absorption of commercial land and to evaluate the success of City policies and
strategies in providing land supplies.
· 'public investment should be concentrated in areas where redevelopment is suitable, and
rezoning recommended where appropriate. In addition, newly developed areas of the city
must be planned to accommodate an ample share of commercial land. The UGB will most
likely not be substantially expanded within the time frame of this Study, and more demand
will be placed on suitable sites for rezoning, redesignating, and for infill development.
Incentives for redevelopment will need to be established to ensure that redevelopment is
economically -fea1';ible, and a process to identify appropriate properties for rezoning and
redesignation is adopted.
Key Policies
Policy 1: Maintain at least a five-year supply of commercial land within the Urban Growth
Boundary (UGB) that is currently served or readily serviceable with a full range of urban public
facilities and services.
Policy 2: Evaluate land use patterns and service-related limitations to commercial development
in Glenwood.
Policy 3: Redesignate and rezone portions of industrial land or residential land within identified
Employment Center, Neighborhood Center, or Commercial Center nodes to Mixed Use
Commercial to achieve the objectives of TransPlan, Transportation Planning Rule 12, and to
incorporate higher intensity development in conjunction with residential and employment
opportunities. .
Policy 4: Facilitate redevelopment by adopting a combination of strategies which reduce
barriers, streamline the approval process, provide incentives and reduce costs, thereby
improving the market for higher intensity redevelopment.
Policy 5: Facilitate the development of small commercial parcels.
;
Policy 6: Adopt strategies that reduce the amount of cqmmercial land occupied by surface
parking.
Policy 7: Facilitate more efficient use of commercial land by allowing on-site methods of
stormwater pretreatment that use less of the developable portion of commercial land, within the
parameters of state and federal mandates.
Executive Summary: Springfield Commercial Lands Study
v
Policy 8: Provide greater certainty regarding the development of commercial land by resolving
conflicts between the Metro Plan designations and local zoning of land planned or zoned for
coinmercial use.
Policy 9-A: Promote development of some large-scale commercial development by designating
suitable sites MRC.
Policy 9-B: Identify and rezone smaller parcels with the MRC zoning and plan desigriation to
Community or Neighborhood Commercial on a site-by-site basis. A list of properties with the
MRC zoning designation is contained in Appendix C of this report.
Policy 10: Adopt design guidelines for the Neighborhood Commercial Zoning District that
assures neighborhood compatibility.
Executive Summary: Springfield Commercial Lands Study
VI
Chapter One: Introduction
Purpose
The purpose of the Springfield Commercial Lands Study (SCLS) is to implement Policy 32 of the
Eugene-Springfield Metro Area General Plan (Metro Plan) and update the commercial buildable
lands inventory for the portion of the Metro Area within Springfield's urban growth boundary
(UGB). The SCLS will help ensure that Springfield's long-term supply of land available for
commercial development is adequate to meet the community's commercial economic
development needs in terms of both quantity and quality.
Encouraging redevelopment, particularly in Downtown Springfield, is a high priority for City
officials and local interest groups. A combination of factors such as residential growth in
suburban areas of Springfield, combined with the negative effects of State Highway 126, which
bisects Springfield's downtown, has encouraged new strip commercial development in outlying
areas, rather than redevelopment of the downtown core. This development pattern has led to
inefficient travel patterns, as residents are continually dependent on their cars to shop, attend
school, or go to work.
This problem is not unique to Springfield: The
deterioration of downtown districts is so
widespread across the State that the Governor has
announced the Oregon Livability Initiative, which
strives to remedy some. of these issues by
providing financial incentives for redevelopment
and development of mixed-use centers rather than
strip development. Additional measures recently
implemented on the State level have strived to
refocus commercial development in core areas,
focusing on redevelopment and infill, and on
revitalizing downtown.
The SCLS began in 1995, and was developed within a process that emphasized the following:
· Involvement of interested and affected citizens and groups in the planning process;
· Assessment of the existing commercial lands inventory and the relationship between the
projected supply and demand of developable commercial land;
· Evaluation of commercial land and development policy in relation to state law, recent
trends, and community goals;
· Identification and adoption of Metro Plan text and/or diagram changes, as needed;
· Identification and adoption of Springfield Development Code amendments, as needed; and
· Coordination with, and incorporation of work being completed as part of the TransPlan
update and other Periodic Review work tasks.
Springfield Commercial Lands Study
Compliance wI Goal 9 and Other Applicable State Law
The SCLS was developed within the parameters of State land use laws. Oregon's land use
planning system originated in 1973 with the passage of Senate Bill 100, the Oregon Land Use
Act, and the subsequent creation of the Land Conservation and Development Commission
(LCDC) and its administrative department, the Oregon Department of Land Conservation and
Development (DLCD). State land use law requires cities and counties to adopt comprehensive
plans and urban growth boundaries (UGBs) to preserve agricultural land, manage growth,
prevent urban sprawl and assure the efficient delivery of public services.
The Metro Plan is the official long-range general plan (public policy document) for the Eugene-
Springfield Metro Area, and like all comprehensive plans in Oregon, the Metro Plan must
ensure that Eugene and Springfield are in compliance with statewide planning goals and
guidelines. The Metro Plan provides broad planning policies and coordinates the development
of programs to conserve physical resources, to provide public services and facilities, and for
development or redevelopment of the Metro Area. These policies are further implemented in
the land use regulations of the three jurisdictions: the Springfield Development Code (SDC), the
City of Eugene Code, and the Lane County Code. Additionally, a number of "Specific Area
Refinement Plans" govern planning in many neighborhoods in Springfield. The SCLS contains
recommendations for amendments to these documents in Chapter Four: Findings, Policies, and
Implementation Strategies.
The Metro Plan was adopted in 1982 and approved by LCDC in 1982 and 1984, following an
extensive multi-year citizen involvement effort that included more than 4,000 local citizens, and
was completed and approved by LCDC in 1987. Comprehensive plans and development codes
are kept up-to-date, in compliance with statewide planning goals, and coordinated with the
plans and programs of state agencies through Periodic Review. Periodic Review is mandated
by State law (ORS 197.633).
In 1983, the Oregon Legislature passed land use legislation requiring the Land Conservation
and Development Commission (LCDC) to adopt a method to ensure that local plans provide
sufficient land to meet future demand for industrial and commercial development, based upon
an analysis of national, state, and local trends. LCDC adopted "Statewide Planning Goal 9:
Economic Development" (OAR 660-015-0000(9)) in February 1987. Statutory language for Goal
9 is contained in ORS 197.712(2)(a) - (d).
According to the language in Goal 9, cities and counties in Oregon are to review and, if
necessary, amend local comprehensive plans to provide information including the following:
(1) Review of National, State, and Local Trends;
(2) Site Requirements;
(3) Inventory of Industrial and Commercial Lands;l and
(4) Assessment of Community Economic Potential.
I The Industrial Lands Study for the Metro Area was acknowledged by the State in 1992.
Springfield Commercial Lands Study
2
Developers and policy makers can use the SCLS to ensure that the City's guiding documents
contain adequate provisions to satisfy the projected demand for commercial land to the year
2015.
The SCLS is one of eighteen work tasks in the Metro Area's current Periodic Review Work
Program~ and will update the Economic Element of the Metro Plan. The overall objective of the
. SCLS is to contribute to a healthy, stable economy by ensuring that the long-term supply of land
available for commercial uses within Springfield's UGB is sufficient to meet the community's
projected commercial development needs.
Citizen Involvement
Springfield citizens were involved throughout the process of completing the SCLS. A Citizen
Advisory Committee (CAe) met regularly to review and discuss issues regarding the state of
Springfield's commercial land. The CAC was mainly representative of commercial real estate
developers and representatives of Springfield's Planning Commission and City Council. The
CAC met from the beginning of the SCLS in summer, 1995 through the year 1999. The CAC
provided valuable input, which was critical to the development of practical, realistic policies
and implementation strategies.
Relationship of the SCLS to other Studies and Plans
The SCLS is related to a number of other studies, including the Residential Lands Study (RLS),
and the TransPlan, both completed for the Metro Planning area. The RLS and TransPlan are
linked to the SCLS in several ways: The 1992 employment and population projections are
consistent through all of these studies, and were used to assist in calculating future demand.
Further, these studies support the development of mixed-use, pedestrian friendly districts as
opposed to strip mall or "big box" commercial development, and support greater integration of
commercial and residential development. By de-emphasizing a traditional separation of uses
and integrating mixed use, pedestrian oriented commercial centers in residential areas, more
livable neighborhoods can be created.
Relationship to the Residential Lands Study
The RLS, adopted in 1999, recommends policies and implementation strategies to ensure that
sufficient residential land and a broad variety of housing types are provided for the projected
population of Springfield to the year 2015.
The findings of the RLS indicate that the Metro Area's future population will be comprised of .
older, less affluent households, with an increase in childless, one- and two- person households.
Specifically, the number of households with incomes less than $15,000 and within $30- $49,000
are predicted to increase, indicating that there will be an increased demand Jor moderate-rent
apartments and low-to moderately-priced single family housing in the future. Conversely, the
market for higher-end standard and large lot single family housing is expected to experience
Springfield Commercial Lands Study
3
. slow growth to the year 2015. As noted in the 1996 report by ECONorthwest and Leland
Consulting Group, "The direction of the demographics and economics is toward reducing
housing cost (in part by reducing land and built space)" smaller households, and older
households. .."
Choices in housing will reflect changing demographics of the local environment. As an older,
less affluent population emerges in the next 20 years, commercial development will reflect these
changing consumer needs and preferences. Housing, services, and shopping choices will need
to be closer together, and within convenient distances to transit choices to accommodate the
evolving market.
Relationship to Specific Area Refinement Plans
The City has a number of refinement plans, including the Downtown Refinement Plan, the Q
Street Refinement Plan, the Gateway Refinement Plan, the East Main Refinement Plan, the East
Kelly Butte Refinement Plan, the Mid Springfield Refinement Plan, and the Glenwood
Refinement Plan (not adopted as of this writing). These documents refine a long range vision
for specific areas in greater detail than the Metro Plan can provide, and were developed to
provide more specific application of Metro Plan policies and site-specific determination of Plan
Designations. They also offer the opportunity to examine tne area's future public facilities and
transportation needs, and to resolve potential conflicts between adjoining land uses.
To implement some of the policies to achieve better commercial development, certain policies
from specific refinement plans may have to be amended or deleted. The SCLS recommends
several amendments to the various Refinement Plans. These specific amendments are discussed
in Chapter Four: Findings, Policies, and Implementation Strategies.
The SCLS is also related to several specific area development plans, such as the Mohawk
Conceptual Development Plan and the Jasper Natron Specific Area Development Plan. These
studies incorporate principles of "Smart Development", which integrates a mix of uses and
supports transit and multi modal transportation choices, consistent with the policies of
TransPlan.
Relationship to the Industrial Lands Study
The Metro Area Industrial Lands Study was completed in 1992. That Study found that on a
Metro Wide level, there was enough industrial land designated in the Metro Area to meet the
long-term demand. The supply of industrial land is discussed in greater detail in Chapter Three:
Demand Analysis.
Springfield Commercial Lands Study
4
Relationship to TransPlan
The Eugene-Springfield Transportation System Plan
(TransPlan) is a comprehensive planning document that
will guide regional transportation system planning in the
Metro Area for the next 20 years. At the time of this
writing, TransPlan was undergoing review by local
officials (update). TransPlan presents policies that strive to
reduce congestion and auto-dependency, and also contains
a list of Capital Improvement Projects for road and
bikeway improvements. TransPlan advocates the use of a
mixed-use development overlay or zoning district to
reduce reliance on the automobile, and to create more
livable, pedestrian and bicycle-friendly environments.
These mixed-use areas are defined as nodes in the
TransPlan, characterized by a mix of housing types that
achieve a higher density, and a combination of
commercial, residential, civic, and public open space
supported by transit. In the nodes, commercial uses are
intended to intensify, and the character of commercial
development is proposed to shift from traditional auto-
oriented commercial design to more pedestrian and
transit-friendly styles. To implement the nodes a new
. Mixed Use Zoning District and new code language will be
adopted in the SDC, and amendments made to the Metro
Plan where necessary.
The TransPlan identifies thirty-nine nodes in the Eugene-
Springfield Metro Area. Fourteen of these nodes are
located in the Springfield UGB. The three types of nodes
are defined in Figure 1.1.
These areas will be served by frequent transit service and
designed and developed to enhance pedestrian, bicycle,
and transit options. The nodal development land use
strategy can be applied to partially developed sites, sites
with redevelopment or infill potential, and to new growth
areas. Three types of nodal developments are described in
the TransPlan: Commercial nodes, residential nodes, and
employment nodes. Application of a Mixed Use Zoning
District implements the nodal land use pattern. The Mixed
Use District contains design guidelines that ensure that
pedestrian amenities are provided with all commercial
development through the site review process.
Figure 1. 1 Definitions of Nodes
Neighborhood Center- Primarily
residential nodes, but also include a mix of
commercial uses that serve the day-to-day
needs of neighborhood residents. Housing
densities, commercial floor area ratios,
building size, and other development
standards for these centers ensure a level of
activity appropriate for a neighborhood.
Typically, the mix of uses in a neighborhood
center should be 70-85 percent housing, 5-20
percent commercila core, and 5-10 percent
public space. Neighborhood centers must be
located along either a planned or existing
transit route or major transit corridor.
Commercial Center- Locations where
concentrations of intensive office,
commercial, and higher-density residential
development and significant amounts of
employment exist and will likely increase,
The commercial, civic, and employment uses
shall be oriented to serve not only the people
living and working in or near the center, but
also the broader community. Commercial
centers must be located on existing or
planned transit routes with a ten-minute
frequency of service. Typically, the mix of
uses would be 20-70 percent commercial and
employment, 15-65 percent housing, and 5-
15 percent public parks or plazas, Housing
primarily. would be available in multiple-
family structures with some duplex and
single-family structures, Commercial floor
area ratios would be higher.
Employment Center- Areas that contain
concentrations of light industrial, office,
and/or institutional uses, These areas will
include access for people and freight
movement and a variety of services for the
employees who work, shop, and live in or
near the center. General/y, the mix of uses in
employment centers would be 60-85 percent
employment and commercial services, 10-30
percent housing, and 5-10 percent public
space, Housing in these centers typically
would be limited to multiple-family
structures, Commercial retail and service
activities shall be oriented to serve the day-
to-day needs of employees working in or near
the center,
Source:. Draft TransPlan, LCOG, 1998
Springfield Commercial Lands Study
5
A map of the proposed TransPlan nodes with the remaining vacant commercial sites is located
on Page 7 -A of this report.
Significance of the Transportation Planning Rule
In 1991, the State took a proactive approach to addressing the relationship between land use
and transportation by adopting the Transportation Planning Rule 12 (TPR), OAR 660-012-045.
Through the implementation of TPR policies, state agencies have endeavored to revive
depressed downtown cores by mandating the implementation of local land use regulations that
encourage transit" bicycling, and pedestrian access
in areas that exhibit a linear, auto-dependent land
use pattern.
Historically, the success of a retail commercial
business was thought to be dependent entirely on
the accessibility to the business by the automobile.
State mandates to reduce reliance on the
automobile may change the design of commercial
development to be more pedestrian accessible and
de-emphasize the dominance of autos in site
development. Locations traditionally sought after
for commercial businesses may also change.
Developers of commercial property maintain that
successful commercial sites must be located along
arterials or collectors, and must have ample,
visible parking between the building and the
street. As a result, commercial zoning has
historically tended to stretch along established
highways and well-traveled streets, contributing to
a pattern of linear, disjointed development, creating traffic congestion and hazards. However,
changes in land use regulations as mandated by the State stress the importance of compact,
nodal development that may actually reduce congestion, improve access, and provide
pedestrian safety.
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The TPR requires that local governments amend their land use regulations and implement
policies. designed to reduce reliance on the automobile. Transportation systems must be
planned to support a pattern of travel and land use that minimizes air pollution, traffic, and the
associated livability problems characteristic of many growing urban areas. The City has been
active in implementing the provisions of the TPR since its adoption through the site review
process, and through various specific area plans that emphasize pedestrian and multi modal
transportation choices. The implementation of the TransPlan will assist in increasing the
intensity of uses within the identified nodes.
To achieve the development patterns mandated by the State, the TPR emphasizes the following
strategies:
Springfield Commercial Lands Study
6
'.
· Increased residential densities and implementation of minimum residential densities within
% mile of transit lines, major regional employment areas and major regional retail shopping
, areas;
· Increased densities and minimum floor area ratios in new commercial office and retail
developments;
· Implementation of parking maximums for office and institutional developments;
· Designation of lands for neighborhood shopping centers within convenient walking and
cycling distance of residential areas;
· Designation of land uses to provide a better balance between jobs and housing.
Study Scope/ Contents
The SCLS is an evaluation of the commercial development issues within Springfield's UBG.
Chapter One: Introduction describes the Study and its purpose, contents, it relevance to
Statewide Planning Goal 9 and other plans, and the citizen involvement process used to
complete the SCLS. Chapter Two: Supply of Commercial Land in Springfield, evaluates the
inventory of developable commercial sites. Chapter Three: Demand Analysis, describes the
methods used for calculating the demand to the year 2015 and the issues surrounding the
demand for commercial land. Chapter Four: Findings, Policies, And Implementation Strategies,
includes a list of City policies and regulations that influence commercial development and
presents recommended changes or amendments to the City's guiding documents. In addition,
there are three Appendices: Appendix A: Vacant Land Inventory Methodology,Appendix B:
Detailed Employment Projections, and Appendix C: Sites with Plan! Zone Conflicts.
Springfield Commercial Lands,Study
7
Chapter Two: Supply Of Commercial Land In Springfield
Introduction
The purpose of this chapter is to evaluate the supply of buildable commercial land in the
Springfield UGB, and determine whether there are enough commercial sites designated to meet
the projected demand to the year 2015.
There is a shortage of suitable commercial sites within the Springfield UGB to meet the long-
term demand for commercial land, as indicated by the vacant commercial land inventory and
the demand analysis, which follows this chapter. There were basically two phases involved in
creating the vacant land inventory.
(
The first phase was completed in 1995, and was based on an existing GIS database compiled by
Lane Council of Governments (LCOG). To assure the accuracy of this inventory, Staff field
checked all vacant commercial sites larger than 0.5 acres to determine the current development
status (vacant or developed), and to record information of constraints to evaluate the quality of
the sites. The inventory was adjusted and changes incorporated where necessary, based on the
findings of the fieldwork. At the time this inventory was
completed, there were approximately 211 vacant acres of
commercially-designated land in the UGB. This
methodology is discussed in greater detail in Appendix
A: Vacant Land Inventory Methodology.
during the 3~ year
period from 1995 to 1999,
the vacant commercial land
inventory had been reduced
from 211 to approximately
85 acres, a rate of 36 acres
per year.
The second phase in developing an inventory was
completed in January 1999. Although the SCLS was
begun in 1995, lack of funding necessitated a year-long
break in the project, and it was resumed in late 1998. To
ensure the accuracy of the inventory, all sites included in
the 1995 inventory were revisited to determine which sites had been developed. This field work
indicates that during the 3~ year period from 1995 to 1999, the vacant commercial land
inventory had been reduced from 211 to approximately 85 vacant acres, and that roughly 30 of
these acres were contained in the former Springfield Airport site. '
In addition to the commercial land in the vacant land inventory, an additional 12 acres were
determined to be feasibly redevelopable during the time frame of this Study. Statewide
Planning Goal 9 requires that local jurisdictions evaluate land suited for redevelopment and
include this land in their commercial land inventory. A common method to determine
properties that are suited for redevelopment is to compare the improvement value of the tax lot
to the land value. Where the lot is developed, and the improvement value is less than the value
of the lot, or where the improvement value per acre of the tax lot is less than or equal to
$100,000, the parcel is considered redevelopable.2 However, this method is somewhat
problematic in Springfield, and is addressed in greater detail later in this chapter.
2 This methodology was used in the TransPlan and the Residential Lands Study to determine redevelop able land.
Springfield Commercial Lands Study
8
As discussed in Chapter Three: Demand Analysis, there is a lack of suitable sites to meet the
long term need for commercial land. Potentially, this shortfall can result in greater competition
and increased prices for commercial land, and can impede the potential for healthy economic
development, as businesses and retail are forced to locate outside Springfield due to a lack of
suitable sites. Policies and implementation strategies to help provide a greater supply of
developable commercial land are discussed in Chapter Four.
This chapter discusses the constraints and serviceability analysis, a summary of changes to the
1995 inventory, the findings of the vacant land inventory, an inventory of redevelopable land,
and contains a general discussion of the quality of commercial sites in the UGB, setting the
framework for the demand analysis.
Development Constraints Analysis
A number of the sites originally included in the commercial land inventory have constraints
that preclude their full development. Springfield's UGB lies within both the McKenzie River
and Willamette River basins, and is characterized by open agricultural, riverine, and forest<~d
lands along with urban development. The topography of Springfield consists of flat areas, with
steeper slopes along the southern border of the UGB. There are a number of sites in the original
inventory that exhibit constraints to development such as wetlands, riparian areas, or steep
slopes. The 1995 vacant land inventory was adjusted to reflect the constrained ,acreage.
In order to evaluate a vacant sites' quality, or readiness for commercial development, an
analysis of constraints was conducted for each site included in the inventory. In the analysis,
the presence and impact of the following constraints to development were recorded:
· Major Power Transmission Lines: Including existing SUB, and BP A 115KV and 225 KV line
easements and planned facilities;
· Hazardous Wastes: As indicated on the DEQ Environmental Cleanup Site Information
System list and Leaky Underground Storage Tank List;
· Slopes Over 15 Percent: As indicated on City of Springfield topography maps;
· Inadequate Lot Size: Lots less than 6,000 sq. ft. in size (min. required by the SDC) or less
than 75 ft. in depth;
· Poor Visibility: Not visible from an arterial, site is not adjacent to a road, or site is a
panhandle;
· Inadequate Access: Comer lots having less than 200 ft. frontage on an arterial, less than 100
ft. on a collector, less than 75 ft. frontage on a local Street~ site is a panhandle, not accessible
from a street, or poses a safety hazard;
· Hydric soils;
. Unstable soils;
· Willamette River Greenway and Greenway Setback;
· Floodway and/ or floodway fringe;
· Wellhead zone of influence;
· Wetlands: as indicated on the accepted City of Springfield Wetlands Inventory
· Other potentially regulated natural resource sites; and
· Plan/ zone conflicts.
Springfield Commercial Lands Study
9
. Table 2-1 illustrates th3e type of consti'aint and frequency of type of constraint to development
for the sites inventoried. Thirty of the sites had no constraints. The most prevalent constraint
was poor visibility, exhibited in 46 of the sites inventoried. This constraint analysis was
completed for the original 1995 commercial land inventory.
Table 2-1. Type of Constraint and Frequency of
Type of Constraint to Development
Number of Tax Lots
With Specific
Phvsical Constraint Constraint
None 30
Maior Power Trans. Line 5
Develooed 20
Wetlands 13
Hazardous Wastes 4
Inadeauate Lot Size 2
Poor Visibilitv 46
Inadeauate Access 14
Planned for Public Use 4
Steeo Slooes 1
Stormwater (lona term) 14
Sanitarv Sewer (Iona term) 11
Water 4
Source: Springfield Vacant Lands Inventory, August 1995
Serviceability Analysis
Statewide Planning Goal 9 requires that commercial land studies assess the serviceability of
commercial sites, and that barriers to water, storm sewer, and sanitary sewer services in the
short and long term planning horizons are identified. For each of the sites included in the
vacant lands inventory, the existing services were identified, and where a lack of services
existed, it was noted as a constraint to full development. The results of the analysis contribute
to a realistic assessment of the developable vacant commercial acreage.
The following services were examined to evaluate the serviceability of each vacant commercial
.site:
Stormwater: The City's stormwater system has some capacity limitations in certain areas~ In
general, runoff from sites may require greater pretreatment and pollutant filtration systems,
due to the impacts of the Endangered Species Act (ESA) and the National Pollutant Discharge
Elimination System Program (NPDES). The City is investigating pretreatment methods, such as
underground vaults and biofilters that will preserve a site's builda,ble acreage, and still comply
with the requirements of the ESA and the NPDES.
3 This constraints table should be updated every few years to reflect an accurate inventory of constraints.
Springfield Commercial Lands Study
10
To evaluate the serviceability of a commercial site, those that are connected to the stormwater
system, or those that have services immediately available are considered serviceable in the short
term. Sites that can be connected to a facility are considered serviceable in the medium term,
between 1 to 6 years. Sites that require major infrastructure modifications are considered
serviceable in the long term, between 7 and 20 years.
Sanitary Sewer: The City's sanitary sewer capacity is generally adequate to serve the projected
need during the period to 2015.. There are undeveloped areas outside the City limits that are
currently not served with sanitary sewer, which are considered serviceable in the long term,
between 7 and 20 years. Sites that are connected to the system, or where services are
immediately available are considered serviceable in the short term. Sites that can be connected
to a facility are considered serviceable in the medium term, between 1 to 6 years.
Water: SUB and Rainbow Water District were consulted regarding the availability of water
services. All sites have the potential to be served with water. Sites adjacent to water lines are
considered serviceable in the short term. Sites not adjacent to existing water lines and those that
would require extensions are considered serviceable in the medium term. The City's water
system has an adequate supply of water to serve projected needs to the year 2015.
Table 2-2 illustrates the number of sites that can be served in the short (immediately available),
medium (1-6 years), and long term (7 to 20 years) planning horizon. Most of the sites in the
vacant land inventory can be served in the short term, yet there are some with constraints,
primarily with respect to provision of adequate sanitary sewer.
Table 2-2. Summary of Serviceability of Commercial Land,
City of Springfield, 1995
Source: Springfield Commercial Land Inventory, 1995
Vacant Land Inventory Changes Since 1995
When the original inventory of vacant commercial land was compiled and field visits
conducted in August 1995, there were approximately 211 acres of developable commercial land
in the UGB. Since that time, approximately 126 acres have been developed.
Table 2-3 contains a list of the remaining commercial sites in the UGB, as of February 1999. As
illustrated, the remaining developable commercial sites are limited. Site 1041, the former
Springfield Airport site, contains over one-third of the vacant commercial land inventory, 30.85
acres. Over fifteen acres of the larger parcels of vacant commercial land are in the Jasper /
Natron area, and 3 acres are within the McKenzie/Gateway "floating node", which will not be
Springfield Commercial Lands Study
11
readily serviced with sewer in the short or medium term. Subtracting the Springfield Airport
site and the sites in the Jasper! Natron, McKenzie! Gateway areas leaves approximately 34 acres
of vacant, readily developable, commercial land.
Table 2-3. Vacant Commercial Land, City of Springfield. Revised February 1999
. _':';~"""c.e'~"i"'ftll/ty
creag~ ,~ Sto~ ..l ~~~ffffi~~;i;
A vailabll! . ,... a ~ca . H'Vat ,ewer ,.. .
1004 5.00 Gateway/Hutton & Kruse S S S NA C
1006 1.41 Ooubletree/ Gateway area S S S NA C
1017 2.00 Les Schwab/ Harlow Road S S S
1019 2.35 7-Eleven/Laura & Harlow Road S M S 70 C
1020 2.97 Sports Way area S S S Near7A C
1027 . 0.34 Laura & S Streets M M S NA C
1028 0.33 Laura & S Streets M M S NA C
1029 0.33 Laura & S Streets M M S NA C
1041 30.85 Former Airport, 28th and Olympic S M S Near 9A MRC
1042 3.24 Near Olympic and 18" St. S S S Near 9A MRC
1048 0.88 17th and South A Streets S S S 98 C
1049 0.66 14'" and South A frontage S S S 98 C
1050 0.61 South A and 12th Streets S S S 88 C/MOR
1052 2.14 32nd & Main Streets M M S 9C C
1056 0.97 Off 32nd behind Les Schwab Tire S S S Near 9C C
1059 0.51 36th & Main Streets S S S NA C
1063 0.92 42nd & Main Streets S S S 90 C
1064 1.00 Near 4200 and Main Streets S S S 90 C
1069 0.96 SW corner of 42nd and Main Streets S S S 90 C
1071 5.9 Jasper Road, across from store S S M NA C
1073 0.67 Near 46th and Main Streets S S S NA C
1074 0.92 S. Main, across from Factory Restaurant S S S 90 C
1075 1.00 39th & Main Streets S S S 9F C
1078 0.54 52nd & Main Streets . S S S NA C
1085 3.82 Jasoer Natron M L M 9H C
1086 4.38 Jasper Natron M L M 9H C
1087 7.42 Jasoer Natron M L M 91 C/MOR
3.0 "Floatina Node" in McKenzie Gatewav M M M 78 MOR
Total 85.12
Revised February 25, 1999
'Can be serviced in the short term, medium term, or long term.
"S" Short- Immediately serviceable
"M" Medium- Service can be provided in 1-6 years.
"L" Long- Services not anticipated in the near future, 7-20 years out.
As shown in the updated Vacant Land Inventory, during the 3~ year period between August
1995 and January 1999, the rate of absorption of commercial land was high. The acreage
developed during this period was 126 acres, an average of 36 acres per year. To forecast the
demand for commercial land into the future, Staff researched historical absorption rates during
the period of 1985 to 1999. The following is a summary of the research:
Springfield Commercial Lands Study
12
· During the nine-year period between 1985 to 1994, 116.9 acres of commercial land were
developed, an average of roughly thirteen acres per year.
· During the 31;2 year period from 1995 to 1999, roughly 126 acres were developed, an average
of 36 acres per year.
· The total commercial acreage developed between 1985 to 1999 was 243.9 acres, an average of
over 17 acres per year.
These findings are discussed in greater detail in Chapter Three: Demand Analysis, and were
used to develop an estimate of the acreage necessary to meet the future demand for commercial
land to the year 2015.,
Statewide Planning Goal 9 requires that commercial land studies include an inventory of
redevelop able commercial land in the total developable commercial land inventory.
Redevelopment can enhance and revitalize depressed older neighborhoods, focus development
in core areas, and can
preserve land while
accommodating growth.
However, there are
significant barriers that often
make redevelopment more
expensive than new
construction. Often, sites
that seem to have potential
for redevelopment are
limited by their locations or
by infrastructure
deficiencies. The CAC
provided guidance to assess
some of the hurdles
associ a ted wi th
redevelopment, discussed
below. A summary of these
issues is provided in Figure
2.1.
Benefits and Barriers to Redevelopment
Figure 2. 1. Issues Associated with
Redevelopment. In Springfield
.>- Many properties, especially those along Main St., appear to be
redevelopable but are generating rent from long-term . leases on
properties that were fully paid off years ago. For these property
owners, there is no incentive to tackle the hurdles associated with
redevelopment.
>- The parking minimums in SDC Section 78.070, Off Street
Parking Requirements, are high, and parking is expensive and
difficult to provide on smaller sites. Exempt parking in districts in
conjunction with public parking and private pay parking lots such
as Downtown Springfield has been successful, and may work in
other areas of the City, as would parking reductions in all CC
districts. The City may have to invest in public-private partnerships
that establish parking garages in areas targeted for higher-
intensity development.
>- The City may need to amend the SDC to establish landscape,
setback, and other site standards specific to smaller lots.
>- Street and drainage in some areas suited to redevelopment are
deficient and need to be addressed before more intensive
development can occur. Specific areas of the City may need to be
targeted for public improvements where redevelopment is suited,
the approval process may need to be streamlined, or incentives that
reduce costs to developers implemented, to encourage
redevelopment.
1. Many of the properties in
Springfield, particularly
those along Main St., may
appear to be redevelopable.
However, the CAC found
that in many instances,
properties that seemed suited for redevelopment are in fact generating rent from long-term
leases were fully paid off years ago. For these property owners, there is no incentive to
tackle the hurdles associated with redevelopment.
Springfield Commercial Lands Study
13
2. SDC Section 18.070, Off Street Parking Requirements, works contrary to promoting high
intensity commercial redevelopment. The parking minimums in the SDC are high, and
parking is expensive and difficult to provide on smaller sites. Per the SDC, one parking
space per every 300 square feet of floor area is required for most commercial uses. Using
this figure, a 6,000 square foot retail sale building is required to provide twenty off-street
parking spaces. For restaurants, one off-street parking space for every 100 square feet of
floor area is required by the SDC, generating a requirement of 30 off-street spaces for a 3,000
square foot restaurant. Exempt parking in districts in conjunction with public parking and
private pay parking lots such as Downtown Springfield has been successful. Such strategies
in other areas of the City would help alleviate some of the demand for parking, as would
reducing parking requirements in all CC districts. In the City's new Mixed Use Zoning
District, there are no parking minimums proposed for commercial uses.
3. Conversely, many developers feel that parking is one of the most important components to
a successful business. Often, more than the minimum parking required is provided, giving
rise to the "sea of parking" characteristic of many commercial districts. To address this
problem, the City may have to invest in public-private partnerships that establish parking
garages in areas targeted for higher-intensity development, implement parking maximums,
or implement disincentives for providing excessive parking.
4. In addition to parking standards, the City may need to amend the SDC to establish
landscape, setback, and other site standards specific to smaller lots. Specific areas of the
City may need to be targeted for public improvements where redevelopment is suited. In
these targeted areas, the approval process may need to be streamlined or incentives that
reduce costs to developers implemented, to encourage the type of redevelopment optimal
for the City.
Another strategy other cities have used to encourage efficient use of sites are Floor Area
Ratios (FARs) or building coverage standards, where a ratio of the lot size to the building
size must be attained, encouraging greater flexibility in placement of buildings and in use of
land. Parking reductions or FARs could be adopted in areas identified for TransPlan nodes.
5. The development of infilllots or smaller sites is often not financially feasible given the costs
of development in relation to the future income generated. To achieve smaller-scale
commercial development, the City must encourage it by offering financial incentives for
redevelopment, and by removing barriers in the SDC for the development of smaller lots.
6. Street and drainage deficiencies in some of the areas suited to redevelopment are
prohibitive to establishing the optimal land use pattern.
Specific policies and implementation strategies addressing these issues are included in Chapter
Four: Findings, Policies, and Implementation Strategies.
Springfield Commercial Lands Study
14
Inventory of Redevelopable Land
In the TransPlan, the methodology to evaluate the redevelopment potential of commercial land
is as follows:
· The site must be non-vacant;
· The improvement value of the tax lot must be less than the land value; or
· The improvement value per acre of the tax lot must be less than or equal to $100,000.
To determine the amount of redevelopable land in the UGB, Staff researched
land/improvement values of all commercially-designated and zoned land using the Regional
Database maintained by LCOG. Again, when examining ratios of improvement values to land
values, it appears that numerous parcels, particularly those along Main St., are redevelopable.
Including all of these lots in the redevelopable inventory would provide an unrealistic estimate
of the acreage suited to redevelopment in the UGB.
It is more reasonable to expect that redevelopment will occur only after infrastructure issues are
resolved by public policy and where public investment via the Capital Improvement Program
(CIP) to implem~nt the development of the TransPlan
nodes. It is important, therefore, to adopt City policies
and implementation strategies to facilitate redevelopment,
and to develop the remaining vacant commercial land in a
manner that best meets the needs of Springfield residents.
Planning tools such as the Mixed Use Zoning District (not
yet adopted) can potentially increase a parcel's
marketability by expanding the allowable uses, and
therefore be more attractive to a developer. Moreover,
successful commercial development within the nodes can
have a spin-off effect on prime adjoining parcels, making
them more appealing for redevelopment. Areas such as
Mohawk Blvd. or Downtown Springfield, where the future
LTD Springfield Station will be located, are assumed for
the purposes of preparing a redevelopable land inventory
to experience most of the redevelopment that will occur
within this Study's planning period.
... Redevelopment will occur
only after infrastructure issues
are resolved by public policy
and where public investment
via the Capital Improvement
Program process is used to
implement the development of
the TransPlan nodes. It is
important, therefore, to adopt
City policies and
implementation strategies to
facilitate redevelopment, and
to develop the remaining
vacant commercial land in a
manner that best meets the
needs of Springfield residents.
Table 2-4 describes the redevelopable land inventory broken down by TransPlan node. Only
Neighborhood and Commercial nodes are included, and the inventory includes only nodes that
are in developed areas (as opposed to Jasper/Natron). While the Mixed Use Zoning District
can potentially reduce the amount of commercial land within the nodes, there is a provision in
the district that where residential is developed, the ground floor must be commercial, to
preserve the commercial land supply in the nodes. Approximately 62 acres within the
proposed nodes fit the criteria used in the TransPlan to identify redevelopable parcels.
Springfield Commercial Lands Study
15
However, the Committee asserted that market forces influencing commercial land development
would not be conducive to stimulating any significant measure of redevelopment within the
planning period, and that no more than 20 percent, or 12 of the 62 acres would be redeveloped
within the planning period. They recommend that the City promote measures to stimulate
redevelopment but note that redevelopment as a significant contributor to the commercial land
supply within the planning period of this Study should not be relied upon.
Table 2-4. Redevelopable Land Inventory
70
, ' ons fal
Traffic congestion, limits on development
- because of access issues.
Availability of services in the short, medium,
and long term. State Highway bisects riverfront
area. Auto dependent land use patterns are
N.A. alread existin .
8A
Glenwood
8B
Downtown
S rin field
12 -17 and
Main St.
Mohawk
Blvd.
42" and
Main St.
48 and
Main St.
9.8
13.6
9B
20.6
9A
4.6
90
10.9
9F
1-105 and
9G Main St.
Estimated
Redevelo able Acres
Existing land use pattern; Constraints of State
2.3 Hi hwa s stem; Narrow lot size and fronta e
61.8
Area does not meet the criteria for
redevelo ment
Planning process to begin Summer
2000 with TGM Grant for riverfront
area.1
Future L TO Springfield Station will
spur redevelopment; Planning
process to begin Summer 2000 with
TGM Grant for station surroundin s. 2
Implementation of the Mohawk
Boulevard COP
The construction of Jasper Rd.
extension; Implementation of Jasper/
Natron Plan.
.Per the TransPlan and Metro Plan formulas
1The City was recently awarded a Transportation Growth Management Grant of $65,000 to establish a land use plan
for the Glenwood riverfront that would implement many of the components of the Glenwood Refinement Plan.
2The City was recently awarded a Transportation Growth Management Grant of $75,000 to investigate
redevelopment opportunities spurred by the new L TO Springfield Station in Downtown Springfield.
Summary
As of January 1999, there were approximately 85 acres of vacant developable commercial land
remaining in Springfield's UGB. Of these vacant acres, roughly 30 acres are contained in the
former Springfield Airport site, and over 18 acres are within Jasper/Natron and McKenzie
Gateway, undeveloped areas that are not readily serviceable. Subtracting these sites leaves a
supply of roughly 36 acres, much of which is contained in small sites. The CAC noted that
based on recent patterns of development, this supply would meet the City's demand for two
Springfield Commercial Lands Study
16
years at best. Notable during the previous 3~ year period during 1995 to early 1999, commercial
land in Springfield was developed at a rate of 36 acres per year.
Adding 12 acres of land presumed to be redevelopable, there is currently a supply of 97
commercial acres within Springfield's UGB. This lack of commercial sites may put Springfield at
a competitive disadvantage' compared to other cities in the region, potentially steering
Springfield residents towards shopping at other nearby retail centers.
While extensive redevelopment has not been evidenced over the past planning period, a greater
focus on infill strategies will improve the market for redevelopment. It is also important to
remember that there is a qualitative component to the Study, aside from the quantitative. For
this reason, it is important for the City to aggressively pursue strategies to encourage
redevelopment, and to establish policies that ensure more intensive, efficient use of commercial
land, and to establish a system for identifying industrial and residential parcels suited for
redesignation and rezoning. Current efforts to revitalize downtown Springfield, combined with
the lack of vacant commercial land may result in an intensive focus on redevelopment and
rehabilitation of older properties in the future.
This' evaluation of the supply of commercial land sets the groundwork for Chapter Three:
Demand Analysis.
Springfield Commercial Lands Study
17
Chapter Three: Demand Analysis
Introduction
The purpose of this chapter is to discuss how the supply of commercial land in Springfield
contrasts to the forecasted demand to the year 2015. The demand analysis is based on
employment forecasts, the past rate of absorption of commercial land, and an analysis of
national, state, and local economic trends that impact the future rate of commercial land
absorption.
Determining the amount of land necessary to meet the demand for commercial land has
important consequences for the City. Underestimating the amount of land necessary to meet
future needs can create a shortage of suitable commercial sites and can potentially drive up land
prices; alternatively, a shortage of vacant sites can stimulate redevelopment of existing
underutilized sites. Overestimating the amount of commercial land can create a surplus,
encouraging low intensity, inefficient development patterns.
To determine the demand for commercial land to the year 2015, in early 1999 Springfield Staff .
researched site review applications from 1985 to 1999, and recorded the acreage of commercial
land that had been developed during this 14-year period.4
Comparing the historical development pattern of commercial land with the current supply
indicates that a shortage exists in Springfield's UGB to meet the forecasted demand.
Summary of the Demand Analysis
· The historical absorption rate of commercial land indicates that a shortage currently exists to
meet the City's future demand. Using a rate of 17 acres per year results in a demand for 255
acres per year, and currently, there are 85 acres of vacant and ,12 acres of redevelopable
commercial land within the City's UGB, a total of 97 acres. 5 (note: this figure is based on a
15 year time frame to 2015, the CLS was started in 1995, and was based on a 20-year period
to 2015)
· The ,CAC noted that a figure of 255 acres should be a low-end estimate, based upon more
recent commercial development activity. During the period of 1995 to early 1999,
commercial land in Springfield was developed at a rate of 36 acres per year. This high rate
of absorption reflects the rapid growth rate in the State and the Metro Area during this same
period.
· The CAC recommended throughout the course of the completing the SCLS that
redevelop able land be considered independently of the vacant land demand. While 62 acres
of land within the TransPlan nodes meet the criteria of the TransPlan for redevelopment, the
4 The City's records prior to 1985 are not reliable, and the research went back as far as 1985.
5 Normally, two methods historical rates of absorption and employee forecast methods are used to
Springfield Commercial Lands Study
18
CAC asserts that it is unlikely that substantive redevelopment will occur within the scope of
this Study~ Based on recent trends, the CAC recommend that 20 percent of this amount, 12
acres, be relied on for the purposes estimating redevelopment during the next 15 years.
It is reasonable to assume that the rate of redevelopment can be stimulated by public policy.
Public investment via the CIP process can be used to impl~ment the development of the
TransPlan nodes by improving infrastructure
such as sewer, storm drainage, and pedestrian
and traffic safety. It is important, therefore, to
adopt City policies and implementation
strategies to facilitate redevelopment in
designated nodes.
Although Oregon's 'rapid growth is expected to
level off slightly, the U.S. population continues
to move west, attracted by a strong
combination of jobs, wages, quality of life, and
cost of living. Policies and implementation
strategies must be adopted in the Metro Plan
and the SDC to ensure that there will be enough developable commercial land to facilitate
Springfield's economic development. Underestimating the amount of commercial land
needed to support future growth will hinder Springfield's ability to provide commercial
services to future residents of the community.
.
Examining the historical absorption
rate of commercial land indicates
that a shortage currently exists to
meet the City's future demand.
Using a rate of 17 acres per year
results in a demand for 255 acres
per year, and currently there are 85
acres of vacant and 12 acres of
redevelopable commercial land
within the CitY,'s UCB, a total of 97
acres.
Public investment must be concentrated in areas where redevelopment is suitable, and
rezoning recommended where appropriate. In addition, newly developed areas of the city
must be planned to accommodate an ample share of commercial land. The UGB will most
likely not be substantially expanded within the time frame of this Study, and more demand
will be placed on suitable sites for rezoning, redesignating, and for infill development.
Incentives for redevelopment will most likely need to be established to ensure that
redevelopment is economically feasible, and a process to identify appropriate properties for
rezoning and redesignation is adopted.
.
Based on comparison with other cities, a figure of 17 acres per year seems reasonable.
Although straight comparison is not completely reliable because of varying population
growth rates, industry growth rates, and other factors, comparison with other cities does
provide a rough estimate of a reasonable amount of commercial land to provide into the
future.
.
1. Medford (1997 population 57,610), for example, calculated a need for 16 acres per year,
basing their analysis on the past absorption rate of commercial land.
2. Hillsboro (1997 population 58,365) noted the demand for between 10 and 22 acres of
commercial land per year in their commercial land analysis.
3. In 1992, the City of Eugene Commercial Land Study estimated that 532 acres, roughly 26
acres per year, would be needed to meet the 20-year demand. This figure was based on
Springfield Commercial Lands Study
19
employee/acre ratios. Eugene (1997 population 129,300) assumed that 25 of these acres
would be met through infill and redevelopment, primarily occurring close to the
downtown area.
4. Bend (1997 population 33,740), in their evaluation of commercial land, estimated that
they would need roughly 30 acres per year, based on past absorption rates.
· Commercial development is expected to respond to the evolving population in various
ways. Based on recent trends, the rate of population growth and in-migration are projected
to level off, but remain constant in coming years. Decreasing household size, in
combination with an aging population, will create a demand for smaller types of housing.
An emphasis on providing residential development will continue, however, this may spur a
need for more neighborhood commercial development to serve these residential
developments. Where undeveloped areas are annexed into the City, commercial areas will
be developed to serve these new areas.
· In addition to the shortfall in the supply of commercial land, there is a second concern
regarding the lack of quality developable parcels. While numeric comparisons are useful to
calculate demand, it is also important to evaluate the quality of the remaining sites and the
opportunity for quality redevelopment with the expected future demand for various types
of commercial development.
There are four commercial zoning districts in Springfield, which implement the policies of the
Metro Plan. These are illustrated below in Table 3-1.
Springfield Commercial Lands Study
20
Table 3-1. Commercial Zoning Districts in Springfield
Neighbor-
hood
Commercial
District
Community
Commercial
District
Major Retail
Commercial
District
General
Office
District
The NC District designates sites up to 3 acres in size to
provide day to day commercial needs to support
populations up to. 4,000 people in size. NC
developments should enhance rather than intrude on
the character of a neighborhood by using landscaping,
building materials and design features that are similar
to and in proportion with residential uses. New NC
zoning districts on local streets are not allowed to
expand beyond 1.5 acres unless the development area
abuts a collector or arterial street.
The CC District is intended to provide for a wide range
of retail sales, service and professional office use. This
district also includes all existing strip commercial areas.
The CC zoning district comprises most of the
commercial develo ment in S rin field.
The MRC District is intended for larger shopping areas
and for application to large, vacant tracts of CC
Community Commercial land that are suitable for the
siting of new shopping centers, in which case the
develo ment area shall be 20 acres.
The GO District is intended to encourage appropriate
office development and to implement neighborhood
refinement lans.
Neighborhood commercial developments are
typically within walking or bicycling distance of
support populations. Neighborhood centers
typically have a 1 Y2 -mile radius service area.
Sufficient frontage to ensure safe and efficient
automobile, pedestrian, and bicycle access
without conflict with moving traffic at
intersections and along adjacent streets is also
im ortant.
This type of development typically occupies
between 5 and 40 acres and has a service area
of 3-5 miles. Community commercial
developments require access from major
arterials and need to be located in close
roximit to concentrations of housin .
This type of development needs to be
accessible from freeway interchanges on large
vacant tracks of land of at least 20 acres. The
service area for regional centers in Metro Areas
is 5-10 miles.
The 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 is
re uired in the GO Zonin District.
Community commercial development is facilitated through sites that are between 5 and 40 acres
in size, and has a servic;:e area of 3-5 miles. The vacant land inventory currently contains 4 sites
in Springfield that are close to 5 acres (Site #1087, Jasper Natron, 7.42 acres, Site #1086, Jasper
Natron,4.38 acres, and Site #1004, on Hutton and Kruse Way, 5 acres, and Site #1071, Jasper
Road, 5.9 acres). Because there will be no additional sites added to the inventory in the near
future, it is critical at this time that the City implement policies that encourage and facilitate
redevelopment.
The City's Development Services Department 1999-2006 Strategic Plan notes that newer
commercial areas will be served by smaller-scale, neighborhood commercial development. The
NC zoning district is not widely applied in Springfield, however, is feasible for many of the
remaining commercial sites or in new developing neighborhoods.
The Major Retail Commercial zoning district is intended to protect large commercial sites. The.
findings of this Study and the recommendations of the CAC are that there will continue to be a
need for larger scale commercial sites within the planning period of this Study. Currently, two
areas in the Springfield UGB retain the MRC zoning district and Plan designation. One is the
Mohawk Blvd. area, and the other is the former Springfield Airport site. .
Springfield Commercial Lands Study
21
The Metro Plan acknowledges that it is important to retain the MRC zoning district for the
Springfield airport site, to protect this large parcel of commercial land.
The Mohawk Specific Development Plan (SDP), however, recommends that the area be rezoned
and redesignated to Mixed Use Commercial to facilitate smaller-scale, pedestrian oriented
development Rezoning and redesignation will occur following the implementation of the
. Mohawk SDP. A list of tax lots with the MRC Zoning District is contained in Appendix C of
this report.
Industrial Land Study
Redesignationand rezoning were identified as methods to increase the supply of commercial
land in Springfield's UGB. However, rezoning essentially reduces the other land use
inventories. The CAC expressed a concern that the Metro Area Industrial Lands Study (RLS)
and the Residential Land Study were both completed on a Metro-Wide level, and that these
inventories would need to be updated for Springfield alone before any rezoning or
redesignation could ~ccur. It is important for the City to develop a land use monitoring system
to track the sale and absorption of commercial land and to evaluate the success of City policies
and strategies in providing land supplies.
The ILS was completed in 1992. It is important to assess the supply and demand for industrial
land in order to identify possible parcels for rezoning to commercial, or to Mixed Use
Commercial. A brief summary of the supply and demand for industrial land in the Metro Area,
based on the information in the ILS follows. The scope of the SCLS does not provide the
opportunity to update the 1992 ILS.
The ILS found there were 4,039 acres of land on 189 sites that were designated or zoned
industrial within the Metro-UGB. Of this total inventory, about 3,604 acres on 180 sites were
considered buildable, of which approximately 709 acres were contained in Springfield's UGB.
This supply exceeds the projected demand of between 650 and 1,172 acres. The 2,432-2,954 acre
surplus of buildable land provides a degree of market choice, and was predicted to meet the
area's needs through the year 2010. Based on projected employment estimates, the Study
showed no need in the future for Heavy Industrial.
The numbers of buildable industrial acres by plan designation are illustrated in Table 3-2.
Table 3-2. Number of Buildable Industrial Acres by Plan Designation
Unbuildable Acres
Total Acres
4.90
457.42
1.79
502.20
183.03
1612.58
211.23
1200.92
4.62
51.96
29.08 434.65
213.85 4038.93
Source: Metropolitan Industrial Lands Special Study, LCOG, 1992.
Springfield Commercial Lands Study
22
While desegregating Springfield's demand for industrial land is difficult because the demand
analysis in the ILS was completed on a Metro-Wide level, the Study showed that in 1992, there
were roughly 708 vacant acres of industrial land in Springfield's UGB6.
Although the ILS was completed prior to Sony Disc Manufacturing, which utilized
approximately 120 acres of Campus Industrial in 1994, there is nonetheless an adequate supply
of industrial land to accommodate the Metro Area's forecasted need. The ILS broke down the
Metro Area into specific regions. Those that pertain to Springfield's supply include Glenwood,
West Springfield, and East Springfield. Table 3-3 summarizes the industrial land supply in
these three regions.
Table 3-3. Summary of Springfield's Industrial Land Supply, as of 1992
. ,..,~ -"
. val a I It 'flli1b
Lack of storm and sanitary sewer 8 sites have
limits development; 12 of the 13 Plan/ Zone
Glenwood 123 13 4 sites are outside Ci Limits Conflicts 7%
Well-served by public 3 sites have
West improvements; Some sites are Plan/ Zone
S rin field 627 40 20 within100- ear flood lain Conflicts 16%
7 sites have
East Plan/ Zone
S rin field 232 13 4 Conflicts 6%
Source: Metropolitan Industrial Lands Special Study, LCOG, 1992.
Redesignation and rezonmg could be used to implement higher intensity development in
conjunction with residential and employment opportunities in the identified Employment
Center TransPlan nodes, to achieve the directives of Transportation Planning Rule 12. Any
redesignation or rezone, however, would be dependent on the findings of a traffic analysis, an
analysis of the impacts on existing neighborhoods, and an analysis of other associated
constraints.
Review of National, State, and Local Trends
In general, national, state, and local trends indicate a need towards a higher-end figure of
commercial land to support forecasted continued strong economic growth. Significant
implications include the following:
· The Northwest will continue to experience steady growth. Long run population forecasts
from the State Office of Economic Analysis (OEA) predict steady population growth at an
average annual rate of around 1.1 percent between 1995 and 2015. At this rate, Oregon is
expected to grow from 3.1 million in 1995 to nearly 4.1 million by the year 2015. The
6 This figure includes unbuildable land. A desegregation of Springfield's unbuildable and buildable land from the
Metro Area figure was not completed in the ILS.
Springfield Commercial Lands Study
23
Willamette Valley has grown by over 1.7 percent a year since 1986. Although in-migration
to Oregon is expected to level off, the U.S. population continues to move west, attracted by a
strong combination of jobs, wages, quality of life, and cost of living. Population growth
increases the demand for housing and employment in population-dependent sectors such as
. retail sales and health services.
· Although growth rates are expected to remain even across Oregon, the Willamette Valley
and Central Oregon are expected to grow at a faster rate than ,the State as a whole. An
emphasis on providing residential development will continue, however, this may spur a
need for more neighborhood commercial development to serve these residential
developments (Strategic Plan).
The long-run economic forces have and will have continued impacts on growth in the
metropolitan areas of Oregon. In particular, economic spinoffs favor metropolitan
employment growth, because metropolitan areas contain
economies of scale and agglomerate economies that favor large
scale economic activity, these generate larger numbers of spin off
activities and consequently attract more businesses to the area. For
example, the regional nature of high tech manufacturing facilities
such as Sony and Hyundai has generated the need for localized
business support services and suppliers.
.
Decreasing household
size will increase the
demand for smaller types
of housing and a greater
variety of assisted living
options. Necessary daily
services will need to be
closer together, to serve
. the future population.
Convenience will play a
large role in the success
of future commercial
developments, and more
neighborhood commercial
developments may be
necessary to serve the
demand.
· As the graying of the baby boom generation continues, there
will be a resulting population that is older, and household size
will be smaller. Decreasing household size will increase the
demand for smaller types of housing and a greater variety of
assisted living options. Necessary daily services will need to be
closer together, to serve tpe future population. Convenience will
play a large role in the success of future commercial
developments, and more neighborhood commercial developments
may be necessary to serve the demand.
Economic trends are discussed in greater detail in the following sections.
National Trends
The national economy has been experiencing continued, sustained economic growth for the past
eight years. The combination of low inflation, low unemployment, and strong economic
growth has resulted in the strongest U.s. economy in the last 30 years. A strong stock market
increased consumer confidence and in turn, has increased consumer spending. In 1997, while
real disposable income rose 3.2 percent, real consumer spending rose 4.9 percent. Major retail
chains reported 8-9 percent growth in sales during the same period.7
7 Oregon Economic and Revenue Forecast, State of Oregon Administrative Services Office of Economic Analysis,
May 1999.
Springfield Commercial Lands Study
24
However, international markets continue to struggle, particularly in Japan, where for the first
time since World War II, the country's employment rates were higher than those ofthe U.S. In
the U.S., the manufacturing sector in particular continues to feel the effects of the Asian
downturn. According to the OEA, industrial employment nationwide dropped by 381,000 jobs
between March 1998 and March 1999. .
The OEA notes that the nation's economic growth was expected to slow during the rest of 1999
and into 2000 but has continued to be robust. As international conditions continue to improve,
manufacturing and farming exports will continue to increase. This will raise interest rates
slightly, but still keep them at relatively low levels. While the economy is not expected to
experience a recession in the next two years, recent growth is expected to level off but remain
positive.
In the short term, through the early 2000's, inflation is expected to remain moderate with
consumer prices increasing from 2.0 to 2.5 percent annually. The unemployment rate is
expected to gradually rise to 5.2 percent, and the national economy is expected to grow at a 2.0
to 2.7 percent annual rate during the first half of the next decade.
Long range forecasts from the OEA indicate that national economic growth will continue but
slow slightly from recent conditions, in response to a moderate slowdown in consumer
spending and an improving, though still weak, world economy. The factors that are supporting
the present economic expansion show few imbalances and no signs of a recession in the future.
State Trends
Long range population forecasts from the OEA predict a steady population growth at an
average annual rate of around 1.1 percent between 1995 and 2015. At this rate, Oregon is
expected to grow from 3.2 million in 1995 to nearly 4.1 million by the year 2015. Over 70
percent of this growth is expected to come from net migration into Oregon. These figures
indicate a demand for an additional 500,000 more housing units and related jobs. The Asian
economic downturn affected Oregon's economy because of its reliance on exports to Japan,
however, the westward migration of the U.S. population, driven by economic opportunity and
increasing importance of amenities in location decisions, is expected to continue. Although
growth rates are expected to remain even across Oregon, the Willamette Valley and Central
Oregon are expected to grow at a faster rate than the State as a whole. ' Population growth is
expected to increase 1.4 percent in 1999 and 1.3 percent in 2000, a reduction from the 1.6 percent
growth exhibited in 1995 and 1996.
Table 3-4 illustrates the State long-term population and employment forecasts.
Springfield Commercial Lands Study
25
Table 3-4. Oregon's Population and Employment Forecasts
,Yea ,.0 Ii edi16; m om
1990 2,860,396 2,202,637 1,410,178
1991 2,930,000 2,256,691 1,416,698
1992 2,979,000 2,295,878 1,428,098
1993 3,038,000 2,344,691 1,472,898
1994 3,082,000 2,382,861 1,553,338
1995 3,132,000 2,430,688 1,589,968
2000 3,406,000 2,679,656 1,797,663
2005 3,631,000 2,884,081 1,924,591
2010 3,857,000 3,081,899 2,027,124
2015 4,091,000 3,272,872 2,098,833
Source: Office of Economic Analysis, Department of Administrative Services, State of Oregon. January 1997.
Two factors have been notable in sustaining Oregon's strong economic base: substantial
population growth and the rapidly-expanding high tech sector. Traditionally based in natural
resources, Oregon's economy has experienced a shift to high tech industries. An economic
landmark was reached in 1995, when for the first time the state employment department
reported that the number of high-tech jobs surpassed that of jobs in lumber and wood products.
During that year, 2,200 jobs in forest products and pulp/paper manufacturing were lost, while
the electronic equipment and software sectors expanded by
6,200 jobs.8
Because the State economy is dependent on the demand for
timber and high tech exports, Oregon is highly affected by
national and international conditions. Oregon ranks ninth
among states with exports to Asia. During the Asian economic
downturn in 1998, U.S. merchandise exports to Asia decline'd
15 percent, with machinery, electronics, agricultural and timber
product industries experiencing the most dramatic reductions.
Recently, low mortgage and commercial interest rates and the
expectation that these rates may soon rise has resulted in a
surge of commercial and residential permit applications
statewide. This surge is expected to level off, with construction
jobs growing 4.4 percent in 1999 and slowing to 1.7 percent in
2000.
Long-term projections
from the State of
Oregon indicate that
Lane County will
continue to outpace the
nation in population
growth, and is
predicted to increase
by over 100,000 new
residents between
1995 and the year
2015.
In every region, growth of service-related employment has increased the number of jobs in
restaurant, hotel, and recreation industries. The services sector will continue to increase its
share of the employment sector, as Oregon now has the highest minimum wage in the nation.
There may be a push to increase efficiency with higher wages. Urban areas of Oregon have also
8 Northwest Policy Center, University of Washington Graduate School of Public Affairs, The Changing
Northwest (January 1997).
Springfield Commercial Lands Study
26
experienced increases in relatively high-paying Service industries: legal, business, and health
services. Growth in high-tech employment has been concentrated in the urban areas of the
Willamette Valley and Southern Oregon.9
An improving manufacturing sector with continued gains in service related jobs are expected to
increase personal income from 5.4 percent in 1999 to 5.7 percent in 2000. Job growth in the
services sector is expected to be 5.0 percent in 1999, and is expected to grow 3.6 percent in 2000.
Trade jobs will increase 1.9 percent in 1999 and 2.0 percent in 2000. This reflects the impact of
higher consumer prices and slower population growth. Total wage and salary income will grow
in 1999, but will level off in 2000, to a long run trend of around 5.5 percent.
Per capita income in Oregon is projected to be $25,900 in 1999, a 3.9 percent increase over 1998.
Oregon per capita income still lags behind the national average, with U.S. per capita income
expected to grow 4,1 percent to $27,400 in 1999.
OEA forecasts that Oregon's economy will continue to grow at a faster rate than the u.s.
economy over the next two years. However, the growth was expected to be mild, and well
below the fast pace during the period of 1995 through 1997, mirroring that of the national
economy. However, the actual rate exceeded the national economy in 1998 and continues to do
so in 1999. A decline in employment is likely only if the u.s. economy falls into recession. As
the Asian economies continue to recover, job losses in manufacturing are expected to decrease
in 1999, and slight gains are predicted to follow in the year 2000. The State's long-term economic
outlook mainly reflects the recovery of the Asian markets and the improved national outlook.
With no expected recession and continued wage gains, the growth in trade and service
industries will continue to benefit from strong consumer spending.
Eugene-Springfield Metro Area Trends
Local economic trends are based on research by the OEA, from the Metro Area Residential
Lands Study, and from the Development Services Department's Strategic Plan, completed in
May 1999.
Of Oregon's 1997 population (3,217,000), almost 70 percent is located in the Willamette Valley,
which contains only 14 percent of the State's land area.lO In addition, the Valley contains
roughly 70 percent of Oregon's employment. Long-term projections from the State of Oregon
indicate that Lane County will continue to outpace the nation in population growth, and is
predicted to increase by over 100,000 new residents between 1995 and the year 2015. In 1990,
the Eugene-Springfield metropolitan study area population was 204,359. The Metro Area
population is projected to reach 301,400 persons by 2015, an increase of 97,041 persons or a 47
percent increase. This represents a 1.57 percent annual average increase over the 25-year period
1990 to 2015. Between 1990 and 2010, the Eugene-Springfield Metro Area population is
9 Governor's Task Growth and Its Impacts in Oregon: A report by The Governor's Taskforce on Growth
in Oregon, January 1999.
10 Ibid., note 4.
Springfield Commercial Lands Study
27
expected to grow faster than both the state and the County, increasing at an annual average rate
of approximately 1.54 percent compared to the state's 1A5 and the County's 1.50. Table 3-5
illustrates the past and forecasted population change for the Metro Area between 1990 and 2015.
Table 3-5. Population Growth in the Eugenel Springfield
Metro Area Between 1990 and 201511
1970
1980
1990
1995
2000
2005
2010
2015
156,941
197,632
204,359
224,100
240,700
257,400
277,600
301,400
25.93
3.40
9.66
7.41
6.94
7.85
8.57
2.33
0.34
1.86
1.44
1.35
1.52
1.66
Source: LCOG, Residential Lands Study,
Draft Supply,;,nd Demand Technical Analysis
Average household size in the Metro Area is decreasing, and has been declining nationally and
locally. As the baby boom generation ages, there will be an increased demand for smaller types
of housing. Household size in 2015 is expected to be 2.27 persons per household, a reduction
from the 1995 figure of 2.40 persons per household. The population of the future is expected to
get older as well. The share of population over 55 will increase over the next 20 years, but the
amount of growth will be greatest for younger age groups. As noted in Table 3-6, the Metro
Area's share of 1 and 2 person households is expected to increase in the year 2015, while the
share of 3 and 4 person households are expected to decrease.
Table 3-6. Households in Eugenel Springfield by Household Size, 1990 and 2015
;;rt~1t~\~tl~f~~,~i~1,g90i2():151~~~li~~~;s1::~
Persons
1
2
3
4+
Households
21,000
28,000
12,000
16,000
77,000
Share
27%
36%
16%
21%
100%
Households
37,000
46,000
18,000
21,000
122,000
Share
30%
38%
15%
17%
100%
Households
16,000
18,000
6,000
5,000
45,000
Total
Sources: LCOG, ECONorthwest,
Residential Lands Study, Draft Supply and Demand TeChnical Analysis
Share
3%
2%
-1%
-4%
0%
11 The Eugene/ Springfield Metropolitan Study Area is slightly larger than the Eugene/ Springfield UGB.
Population forecasts for the UGB area are not available.
Springfield Commercial Lands Study
28
As noted in the RLS Draft Supply and Demand Technical Analysis, the changing composition of
households will affect demand for reduced housing cost, smaller households, and older
households, all of which support residential and commercial development that is compatible
with nodal development.
Similar to the State, Springfield's economy has traditionally been based in natural resources.
More recently, the local economy has been shifting towards high tech industries and retail
trade, with. health services also generating employment for a number of local residents. The
advent of Sony Disc Manufacturing generated 430 jobs as of March 1998. During the period of
1991 to 1998, the number of employees at Weyerhaeuser (paper and lumber products)
decreased from 970 to 800, while the number of employees at McKenzie Willamette Hospital
increased from 650 to 860. In 1997, the high tech industry expanded nearly 8 percent statewide"
yet in the Willamette Valley, the expansion of Hyundai, Sony, Hewlett Packard, and other
manufacturers was responsible for 16 percent of the Valley's job growth in 1997. High tech job
growth slowed in 1998, increasing by only 1.5 percent statewide, howev~r most of the
slowdown was felt in the Northern Willamette valley. This rapid growth in the high tech
industries has also resulted in a substantial boost to nearby business support services and
supplier firms.
As resource-based ,industries continue to exhibit reduced demand, other non-lumber
manufacturing and trade sectors will continue to experience growth. Lane County's job growth
for the year 1999 is estimated to be 1.2 percent, modest growth compared to the 4 percent job
growth rate of 1995 through 1997,12
In addition to the high tech and service industries, the construction industry continues to
exhibit steady growth in Lane County, yet is expected to level off slightly as interest rates rise.
The median sales price in Lane County rose from $122,000 in the first half of 1998 to $128,000 in
the first half of 1999. Although rising interest rates may reduce home sales, consumer
confidence remains high, driving the local economy.
Demographic shifts will have an ef~ect on the types and style of commercial development that is .
marketable. Lane County has experienced a significant population shift toward older age
groups, referred to as the graying of the baby boom generation. The 45-59 age group has
increased the most over the last six years, by 35 percent, more than four times faster than the
overall population. Lane County's younger age groups have grown more slowly. The future
population will be working more hours and will require seryices closer to home and work,
consistent with the concept of nodal development the Metro Area is striving to implement. To
serve the future population, commercial development will need to be smaller scale and
businesses located close to home, supporting the concept of nodal development.
Forecasts indicate that household income levels will be decreasing, potentially affecting the
demand for commercial land. Forecasts used for the RLS indicate that households with incomes
over $50,000 will grow slowly, while those with incomes less than $50,000 will comprise a larger
share of the total households in the future. Table 3-7 illustrates the income characteristics of
Metro Area households to the year 2015.
]2 The Register Guard, July 6, 1999.
Springfield Commercial Lands Study
29
Table 3-7. Households in Eugenel Springfield by Household Income, 1990-2015
'iiHo se 'Cilasji ;Si5hare,';![
22,000 28%
23,000 30%
16000 21%
14,000 18%
2,000 3%
77,000 100%
JHousi:ibolcJiF! 1'1:5 .
27,000 31 %
27,000 31%
20 000 23%
12,000 13%
2,000 2%
88,000 100%
..iii.tsel1ofds!;:;i ~
37,000
37,000
28,000
17,000
3,000
100
199D;:201sj1ti'f&'IltlfJEJ;\
.. Hotl$ehpld$~~iiJ 1!SffiiiiiJ;
15,000 3%
14,000 1%
12,000 2%
3,000 -5%
1,000 -1%
45,000 0%
<$15,000
$15,000-$29,000
$30,000-$49,000
$50,000-$99,000
>$100,000
Total
SI1tfife2
31%
31%
23%
13%
2%
100%
Source: Market Demand for Nodal Development, LCOG, ECONorthwest, Leland Consulting Group, January 1997.
Local trends in commercial development are further identified in the Development Services
Department 1999-2006 Strategic Plan, which was completed in May 1999. Part of the Plan's
purpose is to identify issues and opportunities, and to serve as a tool to assist in serving
Springfield's future population. The Plan contains a number of assertions that relate to the
future population characteristics, consistent with the trends identified by OEA. Those that
relate to local commercial development include the following:
· An emphasis on providing residential development will continue, however, this may spur a
need for more neighborhood commercial development and redevelopment of older
commercial areas to serve these residential developments.
· Large new developments will occur within the UGB, outside the existing City Limits,
requiring annexation. Commercial areas will be developed to serve these new areas.
· The UGB will most likely not be substantially expanded within the time frame of this Study,
and more demand will be placed on suitable sites for infill development, especially if
greater federal, state, and local regulations reduce available inventories or restrict uses.
Redevelopment will also occur, but to a greater extent, only when economically feasible for
the developer.
· Based on recent trends, the rate of population growth and the rate of in-migration are
projected to level off, but remain constant in the coming years.
· In addition to population growth, decreasing household size will increase the demand for
smaller types of housing and a wider variety of housing options, including assisted living
quarters.
· Retail development will occur to serve growing residential areas. Small shops and
convenience stores could be integrated into Neighborhood Center and Employment Center
nodes, and shopping centers could be integrated into Commercial Center nodes.
· Growth in manufacturing will draw employees to sites that could be integrated into
Employment Centers, with adjacent supporting retail and office uses with residential areas
located nearby.
Springfield Commercial Lands Study
30
· Growth in the Service and Finance, Insurance, and Real Estate (FIRE) sectors will. generate
demand for suburban office space that could be integrated into each type of node.
· The main challenges to getting commercial development in nodes are not lack of demand or
incompatible locations or structure types. Rather, the challenges are primarily about
changes in design and the commercial viability of those changes. The main design changes
nodal development requires, and the ones most difficult in today's markets, relate to
transportation: auto access and parking, and pedestrian and transit orientations.
· About 35 percent of Springfield residents with jobs live in Springfield and work in Eugene.
This trend will continue in the future. Springfield citizens who work in Eugene tend to use
commercial services provided in Eugene because there is a greater selection.
Conclusions of the Demand Analysis
The City is faced with a difficult situation: There 'are not enough commercial sites to facilitate
quality commercial development, or the future demand for commercial land, and expanding
the UGB is not a feasible option to achieve more commercial acreage.
Table 3-8 provides a summary of the discrepancy between the supply and the future demand
for commercial land. Note that the amount listed for Glenwood is a preliminary estimate of
land with a Commercial or Industrial Mixed Use plan designation. However, neither a
constraint nor serviceability analysis has been completed, and many of these sites are not yet
annexed to the City.
Table 3-8. Supply and Demand for Commercial Land
Su I of Vacant Commercial Land
Removal of Commercial Sites Develo ed between 1995 and 1999
Part of Su I Assumed to be Available from Redevelo ment
Ad"usted Total Su I
Demand for Vacant Commercial Land for 2015
Deficit Between Su I and Demand
255
1 Acreage based on 1995 Parcel File
2Sased on preliminary fieldwork. Much of this acreage is not annexed, serviced, nor has it been analyzed for
serviceability and physical constraints.
3Low figure based on LCOG data using employment projections and employee per acre ratios,
high figure based on historical absorption rates.
Long term forecasts indicate the Eugene-Springfield Metro Area will continue to experience
strong, sustained growth into the future. It is important that the City continue to pursue policies
to provide enough commercial land to meet the needs of Springfield residents, and provides for
quality commercial development. Chapter Four discusses findings, policies, and
implementation strategies that will assist in providing an adequate supply of commercial land
to meet the future demand.
Springfield Commercial Lands Study
31
Chapter Four: Findings, Policies, Implementation Strategies
In this chapter, findings, policies and implementation strategies designed to resolve
Springfield's shortage of commercial land are discussed. The policies and strategies are based
on community objectives and State requirements. Under Statewide Planning Goal 9, local
jurisdictions are required to assess community economic potential; include policies in their
comprehensive or general plan pertaining to economic development objectives; identify the
number of sites and acreage needed in appropriate categories; provide an adequate long-term
supply of commercial land; and protect needed sites with appropriate plan designation and
zoning. These policies and implementation strategies must be consistent with the objectives of
the Metro Plan and with state and federal regulations.
The policies and related implementation strategies fall into five categories: New Commercial
Development, Rezoning and Redesignating, Redevelopment and Infill Development, Efficient
Use of Commercial Land, and Plan Zone Conflicts. For each category, there is a general
discussion of the related issue. Following the discussion there is a finding, a policy, and an
implementation strategy, derived from the definitions in the Metro Plan as follows:
A find ing is a factual statement resulting from investigation, analysis, or observation.
A policy is a statement adopted to provide a consistent course of action, moving the community
towards attainment of its goals.
An implementation strategy is a specific course of action the City can take to accomplish the
objectives of the policy.
Findings, Policies, Implementation Strategies
New Commercial Development
Discussion: Population and employment forecasts indicate that while rapid growth rates are
expected to level off, the U.s. population is expected to continue to move north and west,
attracted by a strong combination of jobs, wages, quality of life, and cost of living. Although
growth rates are expected to remain even across Oregon, the Willamette Valley and Central
Oregon are expected to grow at a faster rate than the State as a whole. The population of the
Metro Area is expected to grow at an average annual rate of 1.7 percent per year, generating a
population between 291,000 and 311,000 by the year 2015. This continued growth is expected to
increase the demand for housing and employment in population-dependent sectors such as
retail sales and health services, and there will be a continuing need to provide commercial
opportunities to serve the needs of Springfield's residents.
The results of the SCLS indicate that there is a lack of readily developable commercial sites to
meet Springfield's long-term demand for commercial land, particularly larger sites that
facilitate national retail stores. While facilitating the development of larger retail stores may
meet the needs of some of Springfield's residents, such practice may not be in the best interest
Springfield Commercial Lands Study ,
32
of the local residents and may not strengthen the local economy. It is important that if new
retail centers are built, they are compatible with and compliment the existing neighborhoods.
Finding 1: Statewide Planning Goal 9 requires that the City of Springfield provide an adequate
amount of commercial land to meet the projected need for commercial development for this
planning period. 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.
As of February 1999, there were approximately 85 vacant acres and 12 acres of commercial land
determined to be redevelopable (97 acres total), indicating a need for an additional 158
buildable acres to meet the long-term demand. Over 30 acres are contained in the former
Springfield Airport site, and roughly 18 are in areas that are not readily developable.
Given past development patterns, the CAC estimated that the current supply would meet the
City's demand for approximately two years. 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.
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.
Policy I-B: Ensure that an adequate amount of commercial land is designated in undeveloped
identified nodes such as Jasper/Natron and McKenzie/Gateway, to accommodate a portion of
the demand for commercial acreage, and to implement the policies and objectives of the
TransPlan.
Implementation Strategy I-B (1): Consistent with The Jasper/Natron Specific Area
Development Plan, designate and rezone 15 acres identified for Community Commercial
and Commercial Mixed Use.
Implementation Strategy I-B (2): Prepare Gateway Refinement Plan and Metro Plan
amendments and designate and rezone 10-15 acres of commercial land in the Gateway
MDR site for neighborhood commercial development. Delete the reference to the 3 acres
recommended in the McKenzie-Gateway Conceptual Development Plan.
Policy l-C: Maintain at least a five-year supply of commercial land within the Urban Growth
Boundary (UGB) that is currently served or readily serviceable with a full range of urban public
facilities and services.
Implementation Strategy l-C (1): Develop a monitoring system to track absorption of
commercial land by acreage as commercial land is developed and ensure that reliable
data on the supply of serviced land is available on an ongoing basis.
Implementation Strategy 1-C (2): Conduct future land analysis on commercial,
industrial, and residential development on a City-specific basis, rather than a Metro-
wide basis, to ensure that information and resulting policies and implementation
strategies accurately reflect the needs of Springfield residents.
Springfield Commercial Lands Study
33
Implementation Strategy 1-C (3): Provide an annual report on .commercial land
absorption rates and supply to the Planning Commission. Evaluate the effectiveness of
policies on supply and demand of commercial land, and make recommendations
accordingly.
Implementation Strategy 1-C (4): Use the six-year Springfield Capital Improvement Plan
to direct local capital improvement funds to build infrastructure to maintain a 5-year
supply 'of fully serviced commercial land.
Implementation Strategy 1-C (5): Use the policies and projects in the TransPlan to direct
regional capital improvement funds into nodes in need of transportation improvements,
to implement the nodal development land use pattern and the requirements of
Transportation Planning Rule 12.
Discussion: There are commercial opportunities in Glenwood. Most of the commercial land is
under a Mixed Use Plan Designation, allowing for office developments, limited commercial
uses, business and industrial parks, and medium density residential housing. Much of the
potential for commercial development in Glenwood is limited by the existing development
pattern, which is piecemeal and auto-dependent. The City of Springfield has received a grant to
explore the existing land use pattern and traffic issues within the riverfront area and implement
policies and strategies to allow the area to develop to its potential as a mixed-use center.
Finding 2: Commercial development in Glenwood is limited to its full potential by service and
other unknown constraints, as well as the existing development patterns.
Policy 2-A: Evaluate land use patterns and service-related limitations to commercial
development in Glenwood.
Implementation Strategy 2-A (1): Include a serviceability analysis of the commercial
land in the Study Area as part of the work program for the Glenwood Riverfront
Specific Area Development Plan.
Implementation Strategy 2-A (2): Include the development of a redevelopment strategy
specific to the Study Area in the work program for the Glenwood Riverfront Specific
Area Development Plan.
Springfield Commercial Lands Study
34
Rezoning and Redesignating
Discussion: Rezoning and redesignation were identified as methods to increase the supply of
commercial land. However, rezoning essentially reduces the other land use inventories. The
CAC expressed a concern that the Industrial Lands Study and the Residential Land Study were
both completed on a Metro-Wide level, and that these inventories would need to be updated for
Springfield alone before any rezoning or redesignation could occur. It is important for the City
to develop. a land use monitoring system to track the sale and absorption of commercial land
and to evaluate the success of City policies and strategies in providing land supplies.
In addition, designating and zoning sites to commercial may create traffic problems and
negatively effect residential neighborhoods. Following the evidence of a surplus of land in one
land use category, rezoning or redesignation could occur within the guidelines of existing
Metro Plan policies, based on an evaluation of existing inventories, an analysis of traffiC and
other infrastructure limitations, and within the parameters of adopted City guiding documents.
Finding 3: Based on the findings of the 1992 Industrial Land Study (ILS), the future demand for
industrial land will be met adequately by the existing inventory of sites. The ILS found that a
surplus of industrial sites exists in the Metro Area, and that there would be no demand for
Heavy Industrial into the future. The ILS indicated a need for 650 gross acres of industrial land
to the year 2010 for the Metro Area. At the time the ILS was completed, there were 708 vacant
acres of industrial land within the Springfield UGB alone.
The 1999 Residential Lands Study found a surplus of Low Density Residential in the Metro
Area. The surplus is not site specific, and much of the vacant undeveloped residential land is
within hillsides and flood fringes. Some of the TransPlan nodes encompass residential land. To
achieve higher average densities to make these nodes function, residential land within the
nodes needs to be redesignated and rezoned to Mixed Use Commercial.
Policy 3-A: Redesignate and rezone portions of industrial land or residential land within
identified Employment Center, Neighborhood Center, or Commercial Center nodes to Mixed
Use Commercial to achieve the objectives of TransPlan, Transportation Planning Rule 12, and to
incorporate higher intensity developm~nt in conjunction with, residential and employment
opportuni ties.
Implementation Strategy 3-A (1): Evaluate inventories based on demonstrated need for
the planning period. Initiate rezoning or redesignation of surplus land uses where more
appropriate for commercial, consistent with the Metro Plan.
Implementation Strategy 3-A (2): Develop an inventory of industrial or residential sites
within identified TransPlan nodes. Following consideration by the Planning
Commission and City Council, initiate the Plan amendment and rezone process for
suitable sites.
Springfield Commercial Lands Study
35
Redevelopment and Infill Development
Discussion: Because there is a lack of quality vacant commercial sites to meet the projected
demand for the future, there may be more pressure on existing underutilized sites for
redevelopment and infill development. The City can help facilitate this process by adopting
and implementing strategies that encourage more intense development, and that make
redevelopment more financially feasible for developers. Public investment may need to be in
areas where redevelopment is suitable, and rezoning recommended where appropriate. Sewers
and local streets are two of the facilities that are lirnitedby a lack of local funding for
improvements. To encourage redevelopment, the City may need to adopt incentives to ensure
that redevelopment is economically feasible for developers.
Finding 4: Redevelopment and infill development is often expensive and problematic for
developers, because of existing land use, traffic patterns and infrastructure limitations.
Policy 4-A: Facilitate redevelopment by adopting a combination of strategies which reduce
barriers, streamline the approval process, provide incentives and reduce costs, thereby
improving the market for higher intensity redevelopment.
,-
Implementation Strategy 4-A (1): Within one year of the adoption of this plan, contract
with a qualified expert(s) to lead workshops for City officials and leaders, staff,
developers and the general public to develop a refined set of redevelopment strategies
and incentives for the next five-year period.
Implementation Strategy 4-A (2): Target specific areas for redevelopment and capital
improvements, and establish specific timelines for the development of improvements
and standards to facilitate redevelopment including reduced parking, landscaping, or
setback requirements.
Implementation Strategy 4-A (3): Identify developed areas that have serviceability
constraints, and target capital improvements to improve the infrastructure in these areas
of the City.
Springfield Commercial Lands Study
36
Efficient Use of Commercial Land
Discussion: Both the Metro Plan and TransPlan stress the implementation of more compact
urban development within the Metropolitan Area. Amendments to the Springfield
Development Code may need to be adopted to achieve higher density development and to
attain infill development in the identified TransPlan nodes or other suitable areas of the City.
Finding 5: There are smaller parcels in the City, particularly along Main Street, within identified
TransPlan nodes, that are suitable for infill development or redevelopment; however,
development costs of these sites is often prohibitive due to infrastructure and improvement
costs, and physical limitations of the lots themselves.
Policy 5-A: Facilitate the development of small commercial parcels.
Implementation Strategy 5-A (1): Adopt a "short site plan" process for redevelopment of
lots less than 6,000 square feet along Main Street and in designated nodes.
Implementation Strategy 5-A (2): Establish an MDS fund specifically for properties less
than 6,000 square feet.
Implementation Strategy 5-A (3): Provide Systems Development Charge credits for
developers who construct infill commercial or who redevelop underutilized sites along
Main Street and in designated nodes.
Implementation Strategy 5-A (4): Amend the Springfield Development Code to provide
development standards specific to lots under 6,000 square feet, such as reduced parking
requirements, setbacks, on-site landscape requirements, flexible development standards,
and Floor Area Ratios (FARs) to increase their marketability and facilitate their
redevelopment, particularly for those parcels within identified TransPlan nodes.
Implementation Strategy 5-A (5): Evaluate the barriers for aggregation of parcels and
develop methods to streamline the process, particularly along Main Street, where many
smaller commercial lots exist.
Finding 6: High intensity commercial development is difficult to achieve with current SDC
requirements for parking. The parking minimums in the Springfield Development Code are
high, and parking is expensive and difficult to provide on small sites. Exempt parking in
districts such as Downtown Springfield has been successful, and shared parking lots would
help alleviate some of the demand for parking.
Policy 6-A: Adopt strategies that reduce the amount of commercial land occupied by surface
parking.
Implementation Strategy 6-A (1): Facilitate more efficient use of commercially
designated land by amending Article 18 of the Springfield Development Code to reduce
parking minimums Citywide in all commercial districts.
Springfield Commercial Lands Study
37
Implementation Strategy 6-A (2): Establish public-private partnerships for development
of parking lots or garages in areas identified for higher-intensity commercial
development. Suitable areas include the Mohawk Blvd. area, 42nd and Main St., Hwy. I-
105 and Main St., and Downtown Springfield. Parking garages in strategic locations
allow higher-intensity commercial uses to develop where surface area parking lots
currently exist. Where parking structures are developed, adopt SDC language requiring
ground-floor commercial, to maximize commercial opportunities in commercial
districts.
Implementation Strategy 6-A (3): Eliminate parking requirements for small lots less than
6,000 square feet.
Implementation Strategy 6-A (4): Develop solutions to reduce the impacts of overflow
parking from commercial districts on nearby neighborhoods.
Discussion: Federal mandates such as the Endangered Species Act and the Clean Water Act
require that urban areas implement ordinances that protect and enhance water quality and
other natural resources. Recent endangered species listings for the Willamette and McKenzie
Rivers may require stricter provisions in the future for protection of natural resources. A
concern of the CAC is that the provision of on-site stormwater treatment facilities uses portions
of valuable and scarce cQmmercialland and promotes lower intensity development, and that
the City should instead establish regional stormwater facilities instead of requiring individual
on-site treatment.
While commercial land is valuable and scarce in the Springfield UGB, the City must also
comply with federal and state mandates and implement provisions for protection of natural
resources. Eliminating the requirement for on-site treatment methods is not feasible at this time.
However, the City will continue to investigate and allow alternative methods of stormwater
treatment as new technologies and methods are developed where feasible.
Finding 7: Requirements for surface stormwater detention systems and bioswales, necessary to
achieve state and federal regulations to protect water quality, utilize a portion of developable
commercialland, which is limited in supply in Springfield's UGB.
Policy 7-A: Facilitate more efficient use of commercial land by allowing on-site methods of
stormwater pretreatment that use less of the developable portion of commercial land, within the
parameters of state and federal mandates.
Implementation Strategy 7-A (1): Identify a variety of methods that treat stormwater on
site, and promote those that use less of the developable portion of a commercial site.
Springfield Commercial Lands Study
38
Plan-Zone Conflicts
Finding 8: There are vacant sites that are zoned but not designated in the Metro Plan for
commercial use, just as there are vacant sites designated for commercial use that do not have
commercial zoning, creating uncertainty for developers and delays in the approval process.
Policy 8-A: Provide greater certainty regarding the development of commercial land by
resolving conflicts between the Metro Plan designations and local zoning of land planned or
zoned for commercial use.
hnplementation Strategy 8-A (1): Initiate Metro Plan Map amendments or zone changes
to correct significant plan/ zone conflicts.
hnplementation Strategy 8-A (2): Rezone properties with plan/ zone conflicts from LMI,
HI, and SHI to CC, consistent with their Metro Plan Designation. A list of properties
with plan/ zone conflicts is contained in Appendix C of this report.
hnplementation Strategy 8-A (3): Rezone properties from LDR, MDR, and HDR to CC,
consistent with the Metro Plan Designation. A list of residential properties with plan/
zone conflicts is contained in Appendix C of this report.
Discussion: The Major Retail Commercial (MRC) zoning district is intended to protect large
commercial sites but inadvertently constrains the development of smaller-scale commercial that
does not meet the criteria of the MRC district, and these are sites that are in the MRC district.
The MRC Plan Designation and zoning district in Springfield are applied in two areas. The first
is the former Springfield Airport site, and the other is the Mohawk Boulevard area. The
Mohawk Boulevard Specific Development Plan (SPD) recommends that the Mohawk area be
divided into three subareas as follows:
· North Mohawk, which is recommended to be predominantly auto oriented,
· Central Mohawk, recommended to be Mixed Use commercial, and
· South Mohawk, recommended to be an integrated health care and assisted living
opportunity area.
To implement the provisions of the Mohawk SDP, the Mohawk Boulevard area should be
redesignated Mixed Use, and specific properties rezoned to Mixed Use Commercial. However,
the MRC district should be retained for the Springfield Airport site, to ensure the protection of
this remaining large commercial parcel. This recommendation is consistent with the Metro
Plan.
Finding 9: The MRC zoning district is important to protect some of the larger tracts of
commercial land.
j'
Policy 9-A: Promote development of some large-scale commercial development by designating
suitable sites MRC.
Springfield Commercial Lands Study
39
Policy 9-B: Identify and rezone smaller parcels with the MRC zoning and plan designation to
Community or Neighborhood Commercial on a site-by-site basis~ A list of properties with the
MRC zoning designation is contained in Appendix C of this report.
Discussion: Demographic trends indicate that a larger share of the future population will be
composed of smaller, older, and less affluent households. The market demand for housing and
related commercial services needed to serve residential uses will be affected by these trends.
There may be an increased need and demand for housing that is smaller and less expensive.
To help achieve affordable housing, it may be developed at a greater density than in the past
and located in areas that provide transit opportunities. More compact forms of housing require
that they be served by convenient commercial services provided at a scale that will compliment
the predominately residential character of these neighborhoods.
The Neighborhood Commercial (NC) Zoning District, while intended to provide smaller-scale
commercial that meets the needs of neighborhood residents, is_not widely used in Springfield.
In the past, applications for the NC district have been met with neighborhood opposition
because there are no design standards to ensure that the commercial will complement or fit in
with the existing neighborhoods.
Finding 10: The Neighborhood Commercial Zoning District is not widely used in Springfield.
Policy lO-A: Adopt design guidelines for the Neighborhood Commercial Zoning District that
assures neighborhood compatibility.
Implementation Strategy 10-A (1): Adopt design guidelines to assure that design
components such as scale, bulk, height, lighting, landscaping, and pedestrian amenities
are included in the Neighborhood Commercial Zoning District.
Springfield Commercial Lands Study
40
Sample ImplementaHon Schedule
Policy Implementation Strategy Related Tasks Timing
Policy 1-A: Maintain a mixed supply of large Implementation Strategy 1-8 (1): Consistent with the Review Draft Jasper/Natron Winter/Spring
and small commercial sites through strategies Jasper/Natron Specific Area Development Plan, designate SOP to ensure that an 2001
such as rezoning or annexation to serve and rezone 15 acres identified for Community Commercial adequate supply of
Springfield's future population. and Commercial Mixed Use. commercial land is provided
for the planninQ period:
Policy 1-8: Ensure that an adequate amount Implementation Strategy 1-8 (2): Prepare Gateway Locate the "floating node"; Spring 2001
of commercial land is designated in Refinement Plan and Metro Plan amendments and amend COP to accommodate
undeveloped identified nodes such as designate and rezone 10-15 acres of commercial land in 10-15 acres of commercial.
Jasper/Natron and McKenzie/Gateway, to the Gateway MDR site for neighborhood commercial
accommodate a portion of the demand for development. Delete the reference to the 3 acres
commercial acreage, and to implement the recommended in the McKenzie-Gateway Conceptual
policies and obiectives of the TransPlan. Development Plan.
Policy 1-C: Maintain at least a five-year Implementation Strategy 1-C (1): Develop a monitoring Summer 2001
supply of commercial land within the Urban system to track absorption of commercial land by acreage
Growth Boundary (UGB) that is currently as commercial land is developed and ensure that reliable
served or readily serviceable with a full range data on the supply of serviced land is available on an
of urban public facilities and services. ongoing basis.
Implementation Strategy 1-C (2): Conduct future land Annual City budget process, Annually, and as
analysis on commercial, industrial, and residential as needed for Periodic Review necessary to
development on a city-specific basis, rather than a Metro- tasks. accomplish
wide basis, to ensure that information and resulting Periodic Review
policies and implementation strategies accurately reflect tasks or studies.
the needs of Springfield residents.
Implementation Strategy 1-C (3): Provide an annual Annually
report on commercial land absorption rates and supply to
the Planning Commission. Evaluate the effectiveness of
policies on supply and demand of commercial land, and
make recommendations accordinQlv.
Implementation Strategy 1-C (4) Use the six-year Annually
Springfield Capital Improvement Plan to direct local
capital improvement funds to build infrastructure to
maintain a 5-year supply of fully serviced commercial
land.
Implementation Strategy 1-C (5): Use the policies and Adoption of the TransPlan. Annually
projects in the TransPlan to direct regional capital
improvement funds into nodes in need to transportation
improvements, to implement the nodal development land
Springfield Commercial Lands Study
41
use pattern and the requirements of Transportation
Planninq Rule 12.
Policy 2-A: Evaluate land use patterns and Implementation Strategy 2-A (1): Include a serviceability TGM Grant: Glenwood Spring 2000 to
service-related limitations to commercial analysis of the commercial land in the Study Area as part Riverfront Specific Area Plan. Spring 2001
development in Glenwood. of the work program for the Glenwood Riverfront Specific
Area Plan. .
Implementation Strategy 2-A (2): Include the TGM Grant: Glenwood Spring 2000 to
development of a redevelopment strategy specific to the Riverfront Specific Area Plan. Spring 2001
Study Area in the work program for the Glenwood
Riverfront Specific Area Plan. .
Policy 3-A: Redesignate and rezone portions Implementation Strategy 3-A (1): Evaluate inventories Adoption of TransPlan; Mixed Following
of industrial land or residential land within based on demonstrated need for the planning period. Use Zoning District. adoption of
identified Employment Center, Neighborhood Initiate rezoning or redesignation of surplus land uses Mixed Use
Center, or Commercial Center nodes to Mixed where more appropriate for commercial, consistent with Zoning District
Use Commercial to achieve the objectives of the Metro Plan.
TransPlan, Transportation Planning Rule 12,
and to incorporate higher intensity
development in conjunction with residential
and emplovment opportunities.
Implementation Strategy 3-A (2): Develop an inventory Work with CAC and PC to Following
of industrial or residential sites within identfied Tr'ansPlan develop recommendations. adoption of
nodes. Following consideration by the Planning Mixed Use
Commission and City Council, initiate the Plan Zoning District
amendment and rezone process for suitable sites.
Policy 4-A: Facilitate redevelopment by Implementation Strategy 4-A (1): Within one year of the TGM Grant: L TD Springfield Spring 2000-
adopting a combination of strategies which adoption of this Study, contract with a qualified expert(s) Station Specific Area Plan. Spring 2001;
reduce barriers, streamline the approval to lead workshops for City officials and leaders, staff, Workshop in
process,provide incentives and reduce costs, developers, and the general public to develop a refined Summer 2000
thereby improving the market for higher set of redevelopment strategies and incentives for the
intensitv redevelopment. next five-vear period.
Implementation Strategy 4-A (2): Target specific areas Adoption of TransPlan; Mixed Following
for redevelopment and capital improvements, and Use Zoning District. Redevelopment
establish specific timelines for the development of Workshop
improvements and standards to facilitate redevelopment
including reduced parking, landscaping, or setback
reauirements.
Implementation Strategy 4-A (3): Identify developed As part of the CIP process
areas that have serviceability constraints, and target
capital improvements to improve the infrastructure in
these areas of the Citv.
Policy 5-A: Facilitate the development of Imolementation Strateav 5-A (1): Adopt a "short site
Springfield Commercial Lands Study
42
small commercial parcels. plan" process for redevelopment of lots less than 6,000
square feet alonq Main Street in designated nodes.
Implementation Strategy 5-A (2): Establish an MDS Redevelopment Workshop Following
fund specifically for properties less than 6,000 square Workshop
feet. .
Implementation Strategy 5-A (3): Provide Systems
Development Charge credits for developers who construct
infill commercial or who redevelop underutilized sites
alonq Main Street and in desiqnated nodes.
Implementation Strategy 5-A (4): Amend the Springfield Redevelopment Workshop Following
Development Code to provide development standards Workshop
specific to lots under 6,000 square feet, such as reduced
parking requirements, setbacks, on-site landscape
requirements, flexible development standards, and Floor
Area Ratios (FARs) to increase their marketability and
facilitate their redevelopment, particularly those parcels
within identified TransPlan nodes.
Implementation Strategy 5-A (5): Evaluate the barriers
for aggregation of parcels and develop methods to
streamline the process, particularly for smaller lots along
Main Street.
Policy 6-A: Adopt strategies that reduce the Implementation Strategy 6-A (1): Facilitate more Prepare Springfield Winter 2001 .
amount of commercial land occupied by efficient use of commercially designated land by Development Code
surface parking. amending Article 18 of the Springfield Development Code Amendments;. Redevelopment
to reduce parking minimums Citywide in all commercial Workshop
districts.
Implementation Strategy 6-A (2): Establish public- Redevelopment Workshop Following
private partnerships for development of parking lots or Workshop
garages in areas identified for higher-intensity commercial
development. Suitable areas include the Mohawk Blvd.
area, 42nd and Main St., Hwy. 1-05 and Main St., and
Downtown Springfield. Parking garages in strategic
locations allow higher-intensity commercial uses to
develop where surface area parking lots currently exist.
Where parking structures are developed, adopt SDC
language requiring ground-floor commercial, to maximize
commercial opportunities in commercial districts.
Implementation Strategy 6-A (3): Eliminate parking Spring 2001
requirements for small lots less than 6,000 square feet.
Implementation 6-A (4): Develop solutions to reduce the
impacts of overflow parkinQ from commercial districts on
Springfield Commercial Lands Study
43
nearbv neiqhborhoods.
Policy 7-A: Facilitate more efficient use of Impementation Strategy 7-A (1): Identify a variety of ESA and CW A evolving Ongoing
commercial land by allowing on-site methods methods that treat stormwater on site, and promote those c requirements.
of stormwater pretreatment that use less of that use less of the developable portion of a commercial
the developable portion of com me rial land, site.
within the parameters of state and federal
mandates.
Policy 8-A: Provide greater certainty Implementation Strategy 8-A (1): Initiate Metro Plan Determine where zone Summer 2001
regarding the development of commercial amendments or zone changes to correct significant plan/ changes would result in
land by resolving conflicts between the Metro zone conflicts. successful commercial
Plan designations and local zoning of land ventures.
planned or zoned for commercial use. .
.
Implementation Strategy 8-A (2): Rezone properties Determine where zone Summer 2001
with plan/zone conflicts from LMI, HI, and SHI to CC, changes would result in
consistent with their Metro Plan Designation. A list of successful commercial
properties with plan/zone conflicts is contained in ventures.
. Apoendix C of this report.
Implementation 8-A (3): Rezone properties from LDR, Determine where zone Summer 2001
MDR, and HDR to CC, consistent with the Metro Plan changes would result in
Designation. A list of residential properties with plan/zone successful commercial
conflicts is contained in Aooendix C of this report. ventures.
Policy 9-A: Promote development of some Implementation 9-A (1): Identify and rezone smaller Recommendations to be Winter 2002
large-scale commercial development by parcels with the MRC zoning and plan designation to developed by CAC and PC;
designating suitable sites MRC. Community, Mixed Use Commercial, or Neighborhood adoption of Mixed Use
Commercial on a site-by-site basis. A list of properties Commercial Zoning District.
with the MRC zoning designation is contained in
Apoendix C of this report.
Policy 10-A: Adopt design guidelines for the Implementation Strategy 10-A (1): Adopt design Notice requirements, 15' and Fall 2001
Neighborhood Commercial Zoning District guidelines to assure that design components such as 2nd readings, etc.
that assures neighborhood compatibility. scale, bulk, height, lighting, landscaping, and pedestrian
amenities are included in the Neighborhood Commercial
Zonina District. .
Springfield Commercial Lands Study
44
Appendix A: Vacant Land Inventory Methodology
Introduction
This section documents the methodology used to update the inventory of undeveloped and
underdeveloped commercial land within Springfield's UGB as part of the SCLS. The purpose of
the inventory update was to develop an accurate arid current assessment of the inventory in
terms of quantity and quality. The resulting findings were then compared to updated projections
of demand for commercial land, in order to determine whether or not an adequate supply exists.
It should be noted that this methodology was used to formulate the original 1995 vacant land
inventory. Developed parcels were eliminated when the inventory was revisited in 1998 and
1999.
Preliminary Inventory and Database
The base data for the update was obtained from LCOG's Geographic Information System (GIS).
The GIS contains pertinent information- such as zoning, plan designation, size ownership, and
land use- for every parcel in the study area and beyond. To establish the inventory, the GIS was
used to generate maps and lists showing all vacant commercial parcels.
Parcels that had commercial plan designations were included in the vacant land inventory, and
included the following:
· Community Commercial (CC)
· Major Retail Commercial (MRC)
· High Density Residential! Community Commercial Mixed Use (HDR/ CC MU);
· High Density Residential! Community Commercial Light-Medium Industrial Mixed Use
(HDR/ CC/ LMI/ MU);
· Community Commercial! Medium Density Residential! High Density Residential/ Light
Medium Industrial Mixed Use (CC/ MDR/ HDR MU);
· Light-Medium Industrial! COqlmunity Commercial Mixed Use (LMI/ CC MU);
· Community Commercial! Light-Medium Industrial! Medium Density Residential Mixed
Use (CC/ LMI/ MDR MU);
· Downtown Mixed Use (DMU); or
· Booth Kelly Mixed Use (BKMU).
Field Work
The inventory in the GIS was current only to July 1992. In order to ensure a higher degree of
accuracy, all vacant commercial sites larger than .5 acres were field checked to determine current
development status (vacant or developed), and to record additional information that would be
useful in evaluating the sites' suitability for commercial development (quality). The field work
was conducted in April 1995.
In addition to current development status, the following information was recorded for each
vacant commercial parcel:
Springfield Commercial Lands Study: Appendix A
A-l
. Pronounced slope;
. Indications that the property was for sale;
. Potential nuisances;
· Indications of previous or impending development; and
· Other pertinent observations.
In addition, the following information was recorded for each vacant commercial site:
. Adjacent land uses;
· Name, location relative to the site, and condition of adjacent street(s);
· Presence of overhead utilities; and
· Other pertinent observations.
Review and Refinement
From this research, a Vacant Commercial Sites Map was generated, reflecting the field work
findings. Springfield planning s'taff and the CAC reviewed this map for accuracy. Changes were
incorporated where necessary.
Development Constraints Analysis
In order to facilitate an evaluation of the vacant commercial sites' quality, or readiness for
development, a development constraints analysis was conducted for each site in the inventory.
Based on existing inventories, the presence and extent of the following potential constraints to
development were recorded:
· Major Power Transmission Lines: Including existing SUB, and BP A 115KV and 225 KV line
easements and planned facilities;
· Hazardous Wastes: As indicated on the DEQ Environmental Cleanup Site Information
System list and Leaky Underground Storage Tank List;
· Slopes Over 15 Percent: As indicated on City of Springfield topography maps;
· Inadequate Lot Size: Lots less than 6,000 sq. ft. in size (min. required by the SDC) or less than
75 ft. in depth;
· Poor Visibility: Not visible from an arterial, site is not adjacent to a road, or site is a
panhandle;
· Inadequate Access: Corner lots having less than 200 ft. frontage on an arterial, less than 100 ft.
on a collector, less than 75 ft. frontage on a local street, site is a panhandle, not accessible
from a street, or poses a safety hazard;
· Hydric soils;
. Unstable soils;
· Willamette River Greenway and Greenway Setback;
· Floodway and/ or floodway fringe;
· Wellhead zone of influence;
· Wetlands: as indicated on the accepted City of Springfield Wetlands Inventory
· Other potentially regulated natural resource sites; and
· Plan/ zone conflicts.
Springfield Commercial Lands Study: Appendix A
A-2
The constraint boundaries were overlayed on the site maps and visual estimates were made of
the percentage of each site affected by each constraint.
Serviceability Analysis
To further aid in an evaluation of the sites' readiness for development, an inventory of e?,isting
and planned sanitary sewers, storm sewers, and water service lines was conducted. Location
relative to the site boundaries, size and type (e.g. pipe or ditch, pressure line or gravity line) were
recorded for each existing utility. Where the analysis indicated inadequate service availability,
City and County Capital Improvement Programs and facilities master plans were consulted, and
relevant plans for extensions were recorded.
Updated Database
The information gathered as part of the inventory update was entered into a database to facilitate
further analysis and the creation of detailed reports for each site, summary tables, and queries.
The inventory database contained all vacant commercial parcels and sites, regardless of size,
while the field work, constraints analysis, and the serviceability analysis covered only those sites
larger than .5 acres.
Springfield Commercial Lands Study: Appendix A
A-3
Appendix B: Employment Projections used to Generate Demand Analysis
Employment Projections, 1995 To 2015
The following section discusses Springfield employment data and employment projections to the
year 2015. LCOG developed two methodologies to determine the 2015 employment projections.
The first methodology uses the results of a Land Use Allocation Model created for the TransPlan.
Land use allocation is a process in which estimated, future Eugene-Springfield Metro Area
employment is allocated to available land on the Metro Area. This allocation separates future
Springfield Employment from future Eugene employment.
Metro Area projections were derived from Lane County employment projections. Both the Lane
County and the Metro Area projections were completed as part of the TransPlan. Individual
employment projections were developed using a regression analysis, a technique for estimating
long term trends. Total Lane County employment projections are estimated using multiple
regression analysis.
The second method for determining 2015 employment essentially takes 1994 Springfield
employment for each employment sector and applies the Lane County employment growth rates
discussed previously. The difference is that the 'growth rates are applied to the Springfield area
as opposed to the Lane County. The results of using this methodology were then compared to
the Metro Area projections and were checked for accuracy.
In summary, the first Springfield employment projection methodology begins with Metro Area
projections and predicts how much of that total employment will locate in Springfield, using the
TransPlan Land Use Allocation methodology. The second methodology starts with recent, actual
Springfield employment and projects that into the future, by multiplying by employment sector
growth rates developed as part of TransPlan for the Lane County employment projections.
Table B-1. Projected Springfield and Metro Area Employment to 2015
. . . . Springfield. ".2015 Metro'. 2015 Springfield
Type of Employment Percent of Metro '. ';i Projected p;ojected . . . .
EmDlovment .....; ;:Emplovment '. .,EmDloyment .....
Manufacturina 30.00% 25,850 7,755
Lumber and Wood 2,521
Non-Lumber Durable 3,602
Food Products 282
Other Non-durable 1,350
Non-Manufacturing 18.00% 127,030 22,870
Trans/Comm/ Utilities 32.15% 4,950 1,591
Construction 29.00% 4,770 1,383
Wholesale 7.60% 5,930 451
Retail 24.70% 28,380 7,008
Services 14.46% 49,480 7,154
FIRE 16.08% 7,750 1,246
Education 16.11 % 16,220 2,613
Government 14.89% 9,550 1 ,422
Total 20.03% 152,880 30,625
Source: LCOG, 1995
Springfield Commercial Land Study: Appendix B
B-1
Table B-2 illustrates Springfield employment projections for the year 2015. The largest increases
are expected to be in "Other Durable Goods", the "Major" and "General" and the Food Services
industries. The only employment sector expected to show a decline in 2015 is in the lumber
sector.
Table B-2. Springfield 2015 Employment Projections
'"' .... ". Existing projected future. :Percenf.. ...
. . . .. .. .. . .
Industrial Sector ..'992. . 2015... . Emplovees ., >Chanile>
Lumber 2,825 2,737 -88 -3.1%
Food 76 152 76 100.0%
Other Durable Goods 486 4,234 3,748 771.2%
Other Non Durable Goods 767 1,487 720 93.9%
Construction 867 1,190 323 37.3%
TCU 537 771 234 43.6%
Wholesale 555 787 232 41.8%
FIRE 689 1,333 644 93.5%
General 3,762 7,729 3,967 105.4%
Major 3,112 7,870 4,758 152.9%
Temp/Group 703 1,330 627 89.2%
Federal 314 318 4 1.3%
State & Local Government 984 1,326 342 34.8%
State & Local Education 1,412 1,847 435 .30.8%
Mining 33 36 3 9.1%
Agriculture 243 243 0 0.0%
Other 7 7 0 0.0%
17,372 33,397 16,025 92.2%
Source: Draft TransPlan, 1998, LCOG
The following tables illustrate the allocation of Springfield employees by plan designation,
projected to 2015. Table B-3 is by percentage and Table B-4 is by number.
Springfield Commercial Land Study: Appendix B
B-2
Table 8-3. Allocation Percentages based on 1992 Existing Employment
In the Eugene! Springfield Metro Area
Employment Distribution by Plan Designation
: ',', . ".','..'" Edu-" ,
cation ,. ". "..
MRC: :CC LMI,: :CI" . Gov.'t' . SHI :HI :.' LOR: .'MOR. ::HDR:
... . .'.. ',. 'c.
Food Products 0% 15% 0% 65% 0% 0% 0% 15% 5% 0% 0%
Other Durable 0% 5% 0% 50% 25% 0% 0% 20% 0% 0% 0%
Other Non-durable 0% 25% 0% 30% 25% 0% 0% 20% 0% 0% 0%
Trans!Comm! 0% 20% 0% 31% 20% 0% 0% 23% 4% 2% 0%
Utilities
Construction 0% 22% 0% 35% 0% 0% 0% 10% 31% 2% 0%
Wholesale 1% 25% . 0% 50% 1% 0% 0% 16% 5% 2% 0%
FIRE 2% 72% 0% 0% 0% 0% 0% 2% 7% 6% 11%
General 4% 60% 0% 5% 5% 0% 0% 1% 15% 7% 3%
Maior 5% 60% 0% 8% 9% 0% 0% 3% 8% 6% 1%
Temp! Group 0% 44% 0% 0% 0% 0% 0% 0% 39% 9% 8%
Source: LCOG, 1995
Table 8-4. Allocation of Employees based on 1992 Existing Employment
In the Eugene! Springfield Metro Area
. '. .',.' Edu- I: :.
, '.. ..... . ..'..
MRC CC cation LMI ,': CL<,:.'... Gov't; SHI HI '. LOR .. . :MDR :HOR:
.. ',.. .- ... ". .....
Food Products 0 31 0 134 0 0 0 31 10 0 0
Other Durable 0 156 0 1558 779 0 0 623 0 0 0
Other Non-durable 0 146 0 175 146 0 0 117 0 0 0
Trans/Comml Utilities 0 211 0 327 211 0 0 242 42 21 0
Construction 0 114 0 181 0 0 0 52 160 10 0
Wholesale 0 0 0 0 0 0 0 0 0 0 0
FIRE 11 401 0 0 0 0 0 11 39 33 61
General 81 1218 0 102 102 0 0 20 305 142 61
Maior 214 2569 0 342 385 0 0 128 342 257 43
Tempi Group 0 121 0 0 0' 0 0 0 107 25 22
Total 306 4967 0 2819 1623 0 0 1224 1005 488 187
Source: LCOG, 1995
Step 2: Employment Located on Commercial Land
Employment projections completed in Step 1 include both commercial and industrial
employment. In Step 2, the employment that is projected to locate on co~ercial land is
isolated. During this process, employment figures were converted from sector groups to plan
designation groups.
Lane County Geographic Information System 1992 employment densities per acre were used to
determine the employment density per acre for future employees. The actual data was modified
to reflect policy for future development, illustrated in Table 8-5.
Springfield Commercial Land Study: Appendix B
B-3
"
Table 8-5. Densityl Employee by Plan Designation
" > Edii~,' , ,
", .' cation> > LMI ,C( ,:,Gollf SHi HI.,.
6.6 13.4 25.0 4.0 6.5 6.5
Source: LCOG, 1995
Step 3: Amount of Land Necessary to Support the Employment Growth
Dividing employment growth by the employee per acre ratios for each plan designation yields
the total acres of land needed to support future development. Most employee' per acre ratios to
be used in this study were developed as part of the TransPlan. These ratios were based on actual
data, adjusted for recent directions in local commercial development.
Table 8-6. Allocation with Metro Percentage Springfield 2015 Employment Projections
Employment
Sector Number EmDlovees bv Plan Desianation
MRC CC LMI CI SHI HI LDR MDR HDR
Food 0 31 134 0 0 31 10 0 0
Other Our 0 156 1558 779 0 623 0 0 0
Other N-Our 0 146 175 146 0 117 0 0 0
Construction 0 114 181 0 0 52 160 10 0
TCU 0 211 327 211 0 242 42 21 0
Wholesale 0 0 0 0 0 0 0 0 0
FIRE 11 401 0 0 0 11 39 33 61
General 81 1218 102 102 0 20 305 142 61
Maior 214 2569 342 385 0 128 342 257 43
Temo/ Grouo 0 121 0 0 0 0 107 25 22
Total 306 4965 2818 1622 0 1225 1005 489 187
EmDlovment Densities bv Plan Desianation
Emolovee/ Acre 31.1 36.1 13.4 25 6.5 6.5
Total Acres 9.85 137.55 210.31 64.89 188.40 611.00
Total Commercial
land Demand 147.40
Source: LCOG, 1995
Springfield Commercial Land Study: Appendix B
B-4
Appendix C: Sites with Plan! Zone Conflicts
The following is a list of sites from the regional GIS database with Plan/ Zone conflicts.
Rezoning should occur following the development of criteria, and on a site-by-site basis.
MAP LOT PLAN DES ZONING MAP LOT PLANDES ZONING
17032524 5200 C HDR 17033641 600 C HI
17032524 5300 C HDR 17033641 500 C HI
17032531 302 C HDR 17023100 2802 C HI
17032531 202 C HDR 17023100 2800 C HI
17032531 5500 C HDR 17023100 2801 C HI
17032531 2100 C HDR 17023100 2900 C HI
17032533 9500 C HDR 17033641 300 C HI
17032533 9600 C HDR 17023100 3201 C HI
17032531 2200 C HDR 17023100 3100 C. HI
17032533 9902 C HDR 17023100 3300 C HI
17033622 300 C HDR 17023100 3000 C HI
17033632 2600 C HDR 17023100 3001 C HI
17033632 2601 C HDR 17033641 2300 C HI
17033631 3100 C HDR 17023100 3200 C HI
17033632 2700 C HDR 17033642 7800 C HI
17033631 3700 C HOR 17033541 8000 C HI
17033632 6500 C HDR 17033541 8900 C HI
17033541 7601 C HOR 17033632 7700 C HI
17033541 7900 C HOR 17033632 7600 C HI
17033632 6300 C HDR 17033632 7500 C HI
17032524 5100 C LDR 17033632 7400 C HI
17032513 500 C LOR 17033632 7300 C HI
17032624 1100 C LOR 17033632 7204 C HI
17032533 8400 C LOR 17033632 7001 C HI
17032534 402 C LOR 17033632 7401 C HI
17032534 401 C LOR 17033632 7203 C HI
17032533 8700 C LOR 17033632 7202 C HI
17032533 9200 C LOR 17033632 7100 C HI
17032533 8800 C LOR 17033632 7200 C HI
17032533 9300 C LOR 17033632 7000 C HI
17032743 5803 C LOR 17033632 7101 C HI
17032743 5400 C LOR 17033632 6901 C HI
17032743 5500 C LOR 18020600 1004 C HI
17032533 11300 C LOR 17023122 700 C LMI
17032533 11400 C LOR 17023122 800 C LMI
17032533 11500 C LOR 17023232 1300 C LMI
17032533 11600 C LOR 17023242 101 C LMI
17032534 6300 C LDR 17033642 5300 C LMI
17032533 12700 C LOR 17033642 5400 C LMI
17032533 12800 C LOR 17033642 5900 C LMI
Springfield Commercial Land Study: Appendix C
C-I
'"
17032533 12900 C LOR 17033642 6000 C LMI
17032533 13000 C LOR 17033500 207 C LMI
17032534 6400 C LOR 17023231 4001 C LMI
17032534 6500 C LOR 17023231 4000 C LMI
17032544 2000 C LOR 17032534 6600 C MOR
17032534 5200 C LOR 17023141 403 C MOR
.
17032534 5300 C LOR 17023141 402 C MOR
17032533 14100 C LOR 17023141 404 C MOR
17032533 14200 C LOR 17023131 6803 C MOR
17032533 14300 C LOR 17023142 5003 C MOR
17032533 14400 C LOR 17023142 4901 C MOR
17032533 15800 C LOR 17023142 5005 C MOR
17032533 15900 C LOR 17023131 6813 C MOR
17032533 16000 C LOR 17023142 4802 C MOR
17033622 600 C LOR 17023142 4701 C MOR
17033631 1403 C LOR 17023131 6703 C MOR .
17033541 8700 C LOR 17023131 6806 C MOR
17033641 1500 C LOR 17023131 6805 C MOR
17023142 113 C LOR 17023131 ,6812 C MOR
17023341 2503 C LOR 17023131 5700 C MOR
17023142 6600 C LOR 17023131 6704 C MOR
17023142 6700 C LOR 17023142 5014 C MOR
17023142 6800 C LOR 17023142 4800 C MOR
17023142 6900 C LOR 17023142 5015 C MOR
17023142 7001 C LOR 17023142 5016 C MOR
17023141 2805 C LOR 17023142 5000 C MOR
17023141 5200 C LOR 17023142 4703 C MOR
17023142 7000 C . LOR 17023131 6804 C MOR
17023142 7100 C LOR 17023142 5100 C MOR
17023142 7600 C LOR 17023141 2809 C MOR
17023142 6801 C LOR 17023141 2902 C MOR
17023142 7501 C LOR 17023141 2903 C MOR
17023142 7401 C LOR 17023141 2904 C MOR
17023142 7500 C LOR 17023131 6702 C MOR
17023142 7400 C LOR 17023141 2801 C MOR
17023142 7200 C LOR 17023232 3000 C MOR
17023141 2806 C LOR 17023231 3000 C MOR
17023141 2804 C LOR 17023131 5800 C MOR
17023342 3300 C LOR 17023231 3300 C MOR
17023141 3200 C LOR' 17023141 2901 C MOR
17033500 306 C LOR 17023141 2800 C MOR
17023332 6100 C LOR 17023141 5700 C MOR
17023344 1000 C LOR 17023141 5600 C MOR
17023344 1 002 C LOR 17023141 6700 C MOR
17023344 1607 C LOR 17023141 2808 C MOR
17023344 1009 C LOR 17023231 3106 C MOR
17023344 1003 C LOR 17023141 2807 C MOR
Springfield Commercial Land Study: Appendix C
C-2
'" ~
17023344 1008 C LDR 17023141 2905 C MDR
17023344 1102 C LOR 17023231 3100 C MDR
17023344 1606 C LDR 17023141 2803 C MDR
17023344 1007 C LDR 17023141 2906 C MDR
17023344 1004 C LDR 17023141 2907 C MDR
17023344 1101 C LDR 17023231 3600 C MDR
17023344 1605 C LOR 17023231 3105 C MDR
17023344 1006 C LDR 17023231 3102 C MDR
17023344 1005 C LDR 17023231 3104 C MDR
17023344 1604 C LDR 17023231 3103 C MDR
17023344 1202 C LDR 17023344 302 C MDR
17023344 1203 C LDR 17023344 201 C MDR
17023344 1204 C LOR . 17023412 201 C NC
17023344 1205 C LDR 17023412 300 C NC
17023344 1206 C LDR 17033531 2200 C PLO
17033524 15200 C LDR/H 17033531 2300 C PLO
17033524 15400 C LDR/H 17033531 2400 C PLO
17033524 15500 C LDR/H 17033542 4600 C PLO
17033524 15600 C LDR/H 17023344 1300 C PLO
17033524 15700 C LDR/H 17023344 1307 C PLO
17033513 12100 C LDR/H 17033542 200 C LDR/H
17033513 12200 C LDR/H 17033542 3100 C LDR/H
17033513 12400 C. LOR/H 17033542 3300 C LOR/H
17033513 12500 C LDR/H 17033542 3400 C LDR/H
17033513 12600 C LDR/H 17033542 3500 C LDR/H
17033513 13000 C LDR/H 17033542 3600 C LDR/H
17033513 13100 C LDR/H 17033542 3200 C LDR/H
17033513 13200 C LOR/H 17033622 4601 C LDR/HS
17033513 13300 C LDR/H 17033622 . 6100 C LDR/HS
17033513 13400 C LDR/H 17033542 1100 C LDR/H
17033513 13500 C LDR/H 17033542 1000 C LDR/H
, 17033513 13600 C LDR/H 17033542 900 C LOR/H
17033513 13700 C LDR/H 17033542 700 C LDR/H
17033531 300 C LDR/H 17033542 600 C LDR/H
17033531 200 C LOR/H 17033542 500 C LOR/H
17033531 100 C LDR/H 17033542 300 C LDR/H
17033542 1300 C LDR/H 17033542 100 C LDR/H
17033542 1200 C LDR/H 17033542 . 800 C LDR/H
Springfield Commercial Land Study: Appendix C
C-3
" ~
TaxLots withMRC Zoning
MAP LOT PLAN DES ZONING MAP LOT PLANDES ZONING
17032542 200 C MRC 17032542 1201 C MRC
17032531 7701 C MRC 17032542 1202 C MRC
17032542 1601 C MRC 17032542 1200 C MRC
17032542 1501 C MRC 17032541 700 C MRC
17032531 7601 C MRC 17032531 6900 C MRC
17032531 7600 C MRC 17032531 7000 C MRC
17032542 300 C MRC 17032531 2600 C MRC
17032531 7400 C MRC 17032531 2700 C MRC
17032542 400 C MRC 17032541 1200 C MRC
17032542 500 C MRC 17032534 4300 C MRC
17032531 7300 C MRC 17032500 801 C MRC
17032542 600 C MRC 17032534 4200 C MRC
17032542 700 C MRC 17032534 100 C MRC
17032542 800 C MRC 17032531 2500 C MRC
17032542 900 C MRC 17032543 605 C MRC
17032531 7200 C MRC 17032543 604 C MRC
17032542 1000 C MRC 17032534 4101 C MRC
17032542 1100 C MRC 17032541 500 C MRC
17032531 7100 C MRC 17032534 3900 C MRC
17032541 1100 C MRC 17032531 2300 C MRC
17032541 1002 C MRC 17032500 802 C MRC
17032541 1000 C MRC 17032500 201 C MRC
17032541 1101 C MRC 17032533 9903 C MRC
17032541 1001 C MRC 17032534 4401 C MRC
17032541 900 C MRC 17032533 9901 C MRC
17032542 1400 C MRC 17032533 9900 C MRC
17032541 800 C MRC 17032500 800 C MRC
17032542 1300 C MRC 17032533 10005 C MRC
17032541 600 C MRC 17032534 4502 C MRC
17032533 10000 C MRC 17032534 4800 C MRC
17032533 10003 C MRC 17032534 5000 C MRC
17032533 10004 C MRC 17032534 5100 C MRC
17032534 3901 C MRC 17032533 17000 C MRC
17032533 10200 C MRC 17032534 6700 C MRC
17032533 10100 C MRC 17032534 6800 C MRC
17032534 4402 C MRC 17032533 17200 C MRC
17032533 16200 C MRC 17032534 4900 C MRC
17032533 16400 C MRC 17032533 14500 C MRC
17032533 16700 C MRC 17032533 16100 C MRC
17032534 4501 C MRC 17033622 100 C MRC
17032534 6200 C MRC
17032533 16800 C MRC
17032533 16500 C MRC
17032534 4500 C MRC
17032533 16900 C MRC
Springfield Commercial Land Study: Appendix C
C-4