HomeMy WebLinkAboutApplication APPLICANT 4/21/2004
City of Springfield .
Development Services Department
.. 225 Fifth Street
Springfield, OR 97477
Phone: (541) 726-3753
.. Fax: (541) 726-3689
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SPRINGFIELD
Amendment of
Refinement Plan Text and/or
Diagram Application, Type IV
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Refinement Plan to be Amended
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Case No. t-!-P IDOL{ -cCiJO{)1 ReceivedBy T\ rnJA/'\.~.
Date Accepted as Complete .. Data Rac19j'les: l-{-- 2-1--04-
Planner: <:r b
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Applications initiated by the public shall be limited to twice a year. Applications shall be
submitted to the Development Services Department on or before January 5th of each,year or July
5th of each year.'
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A COMPLETE APPLICATION CONSISTS OF:
1. 'A complete application page (ali ofthe sectionson the opposite side of this page must be f1l1ed
out).
2. A statement containing Findings of Fact addressing the Criteria of Approval found in
Springfield Development Code (SDC) 8.030. In order for the Planning Commission and the City
Council to consideran amendment ofrefmement plan text and/or diagram, there must be Findings of
Fact submitted by the applicant. The Findings' of Fact must show reason for the request consistent with
the Criteria of Approval (shown below). If insufficient or unclear information is submitted by the
applicant, the request may be denied or delayed.
The application must include requirements for add,'essing specific statewide goals that the Oregon,
legislature has said must be part of the amendment analysis. In particular, Statewide Planning Go~19
Economy and Goal 10 Housing must be addressedfor impact on buildable lands inventories, and a
Goal 12 Transportation analysis must address criteria contained in OAR 660-012-060(1) and (2) of
the Transportation Planning Rule (TPR). Goals 9, 10 and 12 are three of several "Applicable
State-Wide Planning Goals" that must be specifically addressed in criteria (3) of the Springfield'
Development Code (SDC) 8.030, These specific items must be inCluded in the application submittal to
, be considered a complete application.
In reaching a decision on these actions, the Planning Commission and the City Council shall adopt
fmdings which demonstrate conformance to the following Criteria of Approval (SDC 8.030):
1) The Metro Plan;
2) Applicable State statutes;
3)' Applicable State-wide Planning Goals and Administrative Rules.
- 3. A map to scale depicting the existing and proposed diagram change. (If applicable)
4, The application fee. Refer to the Development Code Fee Schedule for the appropriate fee.
A copy of the Fee Schedule is available at the Development Services Department.
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Lane Metro Partnership
Tuesday, April 06, 2004
Mark Metzger
Planning Department
City of Springfield
255 5th St.
Springfield, OR 97477
Re: 800 N. 42nd Street
D2'~Zger:
I am writing in regard to the request for rezoning a portion of the industrial land at 800 N.
42nd Street to allow commercial development. As you know, the Metro Partnership has
been advocating for a survey of both commercial and industrial land in the Eugene-
Springfield area because many of us believe there is a significant shortage of each.
While we are waiting for such a survey to be completed and for appropriate action to be
undertaken to redress the shortfall that I believe it will document, development
opportunities to support our depressed local economy should not be neglected. Having
shown this land to potential clients as a possibility for development, I am convinced that
a mixed comniercial and industrial use would make this are more attractive, not less so. I
also believe that we will be able to attract more and better jobs and development to this
area under the proposed plan than under the current zoning.
Therefore, I would encourage the City of Springfield to approve the requested rezone.
Lf~ 'Ll- D+
Date Received:
Planner: j" 1)
Cc: John Hammer
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1401 Willamette Street, Second Floor
Eugene, OR 97401
P.O. Box 10398, Eugene, OR 97440
Phone: (541) 686.2741
Fax: (541) 686.2325
Web: WW'W.lanemetro.com
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OLSON &
MloRRllS
A division of
L.B. Olson & Associates, Inc.
Consulting Engineers
Land Surveyors
Urban Planners
Traffic Engineers
1410 Oak Street
Suite 200
Eugene, Oregon 97401
(541) 302-9790
Fax: (541) 485-3253
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METRO PLAN AMENDMENT &
MID SPRINGFIELD REFINEMENT PLAN AMENDMENT
J.P. HAMMER 42ND STREET INDUSTRIAL PARK
Owner:
OAKW A Y GOLF INC.
PO Box 2266
Eugene, OR 97402
Tel: 541 683-1166
Applicant:
Olson & Morris
1410 Oak Street Suite 200
Eugene, OR 97401
Tel: 541-302-9790
Assessor's Map:
17-02-32-22
Tax Lots 1400, 1500, 100 and 200
17-0Z-30-44
Tax Lots 500, 600, 800
Metro Plan Designation:
Heavy Industrial
Refinement Plan Designation:
Heavy Industrial
Existing Zoning:
HI (Heavy Industrial)
Proposed Zoning:
CC (Community Commercial)
SITE INFORMATION'
This property is part of the J.P. Hammer Industrial Park and Morrow Plat. J.P.
Hammer Industrial Park is located on the west side of 4Znd Street between the
Southern Pacific Railroad tracks and Olympic Street. The industrial park is
located south ofl-l05. This Industrial Subdivision was created from a log pond.
Before this conversion to Heavy Industrial, this land was essentially unusable.
This site is surrounded by Low Density Residential (LDR) on the west and
industrial uses to the north, east, and south. There is Community Commercial
(CC) zoning along the west side of 4Znd Street south of the Southern Pacific
Railroad tracks. All of the property south of this site is zoned HI. Mt. Hood
Beverage Company and Lane Forest Products are both located in this industrial
subdivision.
Date Received:
Planner: .J p
t-f~ 2( -0+ 1
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EXECUTIVE SUMMARY
The subject property is located within the boundaries of the Mid-Springfield Refinement
Plan and is designated Heavy Industrial. In order for the property to be developed as
planned, the Metro Plan and the Mid-Springfield Refinement Plan needs to be changed
and the zoning subsequently changed to Community Commercial. This request is to
amend the Metro Plan and the Mid-Springfield Refinement Plan by changing the
designation of the subject properties from Heavy Industrial to Community Commercial.
J.P. Hammer Industrial Park is subdivided into 16 lots and a common tract used for water
detention. A total of seven (7) separate tax lots are involved in this Metro Plan and
Refinement Plan amendment and all of these tax lots are currently zoned Heavy
Industrial. The proposed Metro Plan and Refinement Plan affect lots II, 12, 13, 15, and
16 along 42nd Street and lots 9 and 10 along 40th Street which would change plan
designation and zoning from heavy industrial to commercial (please see attached map).
All remaining lots in the subdivision will remain heavy industrial.
The Olympic Street corridor is becoming more commercial and having this corridor in
close proximity to a big-box commercial site would be beneficial as this corridor
continues to develop. Lot 10 of this proposal fills that need for a large commercial site.
The rest of the lots involved in the proposal are relatively small considering they are
zoned HI and, because of their size, may not warrant the HI zoning designation.
Lane Metro Partnership supports this change from Heavy Industrial to Community
Commercial. In a letter dated April 6, 2004, Jack Roberts, the Executive Director of Lane
Metro Partnership stated that, "...I am convinced that a mixed commercial and industrial
use would make this area more attractive, not less so. I also believe that we will be able
to attract more and better jobs and development to this area under the proposed plan than
under the current zoning. Therefore, I would encourage the City of Springfield to
approve the requested rezone."
Transportation is a significant issue with this proposal which is why the applicant has
already had a Major Traffic Impact Study prepared for this site which was completed in
December 2003. This is a very detailed study which discusses existing traffic conditions
and projected traffic conditions. The study provides anticipated transportation
improvements and suggests mitigation items for this proposal.
Throughout this application specific [mdings are cited from various documents,
demonstrating how this proposed amendment is consistent with the general overall
policies of the Metro Plan. The findings also demonstrate how this proposal is consistent
.with present commercial land needs in Springfield. The findings show how there is a
surplus of Heavy Industrial land. The following documents were analyzed and used for
findings of fact:
4Z'd Street Metro Plan / Refinement Ploll Amendment
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. Hammer Industrial Subdivision Plan Amendments and Zone Change Traffic
Impact Study (2003)
. Development Services Department 1999-2006 Strategic Plan (1999)
. Springfield Commercial Lands Study (2000)
. Metro Area Industrial Lands Study (1992)
. Mid-Springfield Refinement Plan
. Eugene/Springfield Metro Area General Plan
. Letter from Jack Roberts, the Executive Director of Lane Metro Partnership
APPROY AL CRITERIA
Criteria for a Refinement Plan Amendment:
Article 7.070(3) of the Springfield Development Code requires that the Planning
Commission and the City Council shall adopt findings which demonstrate conformance
to the following Criteria of Approval; (a) The amendment must be consistent with the
relevant statewide planning goals adopted by the Land Conservation and Development
Commission; and (b) Adoption of the amendment must not make the Metro Plan
internally inconsistent.
Criteria for a Metro Plan Amendment:
Article 8.030 of the Springfield Development Code (SDC) governs the amendment
process for amending the Mid-Springfield Refinement Plan. The SDC requires an
applicant to demonstrate conformance to (I) The Metro Plan; (2) Applicable State
Statutes; and (3) Applicable State-Wide Planning Goals and Administrative Rules.
FINDINGS
. In the Eugene/Springfield Metro Area General Plan, a section regarding Economic
Elements states:
"In striving toward LCDC's Statewide Economic Goal, "to diversify and improve the
economy of the State," the Eugene-Springfield metropolitan area must take
. advantage of and encourage the further diversification of this area's economic
activities and role as a regional center (III-B-1). "
42"d Street Metro Plan / Refinement Plan Amendment
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Comment: By granting this Metro Plan and Refinement Plan Amendment, the city of
Springfield will create a mixed commercial and industrial area. This Metro Plan and
Refinement Plan Amendment will address commercial needs of the City of
Springfield and improve the economic possibilities of the area.
. In the Eugene/Springfield Metro Area General Plan, a section regarding Economic
Elements states:
1.. "The structure of the Eugene-Springfield metropolitan area economy is
undergoing a shift away from lumber and wood products manufacturing (and other
heavy industrial activities) and towards a more diverse economic base characterized
by growth in light manufacturing activities and nonmanufacturing activities of trade,
commercial and professional services, finance, insurance, and real estate (III-B-
1,2). "
Comment This proposal is consistent with the economic element of the refinement
plan because it will increase the amount of commercial property in Springfield which
is in short supply. It will provide land more suited for the shift that is and has been
occurring in the local economy.
. The Eugene/Springfield Metro.Area Refinement Plan identifies general policies of
the plan. One such policy states that
"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. "
Comment: This policy calls for an increase in the amount oflight industrial or
commercial uses as it relates to projected demand. There is an immediate and
substantial demand for more commercial property in Springfield as indicated in the
February 2000 Springfield Commercial Lands Study (SCLS). This Metro Plan and
Refinement Plan Amendment are consistent with this policy.
. The 1992 Metro Area Industrial Lands Study (ILS) found a 2,432-2,954 acre
surplus of buildable industrial land in the Eugene/Springfield area. Specifically,
the study showed that in 1992, there existed 708 acres of vacant land in
Springfield. The ILS indicates that based on employment estimates, there is no
need in the future for Heavy Industrial. Overall, the ILS indicates that the supply
of industrial land exceeds the demand. The ILS was completed on a Metro- Wide
level.
Comment: The ILS indicated that there is an apparent abundance of Industrial Land
in the Eugene/Springfield Metro Area. Granted, this information is over 10 years old
and was completed on a Metro- Wide level. However, the surplus was and is still
42'''' Street Metro Plan / Refinement Plan Amendment
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significant and there remains an adequate supply to accommodate the industrial needs
of the Metro Area. Even though the ILS is somewhat dated, there is nothing that
indicates a demand for Heavy Industrial land at this time.
. The February 2000 Springfield Commercial Land Study (SCLS) identifies a
variety of indicators that reflect the need for commercial property in Springfield.
The overall findings of the study 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." Following are some specific
excerpts from the SCLS that indicate the need for commercial property:
- 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 demandfor 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 of97 acres
- 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
- There will be a continuing need to provide commercial opportunities to serve the
needs of Springfield's residents
- 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
Comment: The findings of the SCLS clearly indicate the need for commercial
land. This proposed change would increase the amount of commercial sites. This
proposal addresses the commercial needs of the City of Springfield and is
consistent with the stated economic elements and findings in the Metro Plan.
APPLICABLE STATE STATUTES
State statutes which apply to this request include those statutes requiring compliance to
statewide goals. The statute requiring compliance is ORS 197.250. This application can
be deemed in compliance by adoption of findings relating how the application conforms
to each of the statewide goals, as outlined in the following section.
STATEWIDE GOALS
42"d Street Metro Plan / Refinement Plan Amendment
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. This section explains how this Metro Plan and Refinement Plan amendment proposal is
in compliance with the statewide goals.
GOAL 1 - CITIZEN INVOLVEMENT
The City of Springfield has in place a procedure for notifying nearby residents of
proposed changes to land use plans. This city process is made in a public hearing. This
application is subject to this process.
GOAL 2 - LAND USE PLANNING
The City of Springfield's land use planning process is spelled out in the SDC. Goal 2
requires that citizens be given an opportunity to review and comment prior to any changes
are made to a land use plan or implementing ordinance. This process is mandated in the
SDC and part of the process this application is subjected to.
GOAL 3 - AGRlCUL TURAL LANDS
This goal does not apply within adopted, acknowledged urban growth boundaries. The
City of Springfield does not have any agricultural zoning districts. These amendments do
not apply outside the urban growth boundary and, because oflimitations on commercial
and industrial development without full urban services, generally do not apply outside the
city limits. All land in the City's urban transition area carries City zoning. An exception
. to this goal was taken in 1982 when the comprehensive plan was acknowledged.
GOAL4-FORESTLAND
This goal does not apply within adopted, acknowledged urban growth boundaries. The
City of Springfield does not have any forest zoning districts. These amendments do not
apply outside the urban growth boundary and, because of limitations on commercial and
industrial development without full urban services, generally do not apply outside the city
limit~. All land in the City's urban transition area carries City zoning. An exception to
this goal was taken in 1982 when the comprehensive plan was acknowledged.
GOAL 5 - OPEN SPACES, SCENIC AND HISTORlC AREAS AND NATURAL
RESOURCES
The majority of this site used to be an abandoned log pond. All of the natural resource
issues were mitigated in the creation of J.P. Hammer Industrial Park. The current layout
shows a 3.1 acre common area that has been designated as a pond area. When the J.P.
Hammer Industrial Park was being created, the appropriate mitigation steps were
addressed. There are no inventoried natural resources on this site, nor are there any
inventoried historic features or archaeological sites located on the subject property.
42"d Street Metro Plan / Refinement Ploll Amendment
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GOAL 6 - AIR, WATER AND LAND RESOURCES QUALITY
City of Springfield has programs and infrastructure to collect and treat existing/future
discharges in conformance with state and federal environmental standards. This property
is part of these programs and infrastructure. In addition, all water issues have been
mitigated.
GOAL 7 - AREAS SUBJECT TO NATURAL DISASTERS AND HAZARDS
Goal 7 deals with development in places subject to natural hazards such as floods or
landslides. It requires that jurisdictions apply "appropriate safeguards" (floodplain zoning,
for example) when planning for development there.
All sites within Springfield that are subject to these hazards (floodplain, erosion,
landslides, earthquakes, weak foundation soils) are inventoried through a variety of
sources. This amendment does not remove or exempt compliance with other Code
standards that may apply to development.
GOAL 8 - RECREATIONAL NEEDS
In Springfield, the Willamalane Park and Recreation District manages recreation areas or
facilities. This property is located in the city limits and is part of this recreation district.
"
GOAL 9 - ECONOMIC DEVELOPMENT
Goal 9 calls for diversification and improvement of the economy. It asks communities to
inventory commercial and industrial lands, project future needs for such lands, and plan
and zone enough land to meet those needs.
This proposal will reduce the amount of Heavy Industrial Land in Springfield. However,
the 1992 Industrial Lands Study (ILS) indicates there is a surplus of industrial property. In
2000, the City of Springfield completed a Commercial Lands Study (SCLS). Throughout
this document, it indicates a need for new commercial property within the City of
Springfield. Following are some examples on how these supporting documents indicate a
need for commercial property.
· The city has a lack of readily developable commercial lands to meet future
demands. The Springfield Commercial Land Study (SCLS) found that 255 acres
of commercial land will be needed to meet demand by 2015. This proposal will
add about 17 acres to the inventory of commercial lands. Rezoning and
redesignation were identified in the SCLS as ways to increase the commercial
land supply.
42"d Street Metro Plan I Refinement Plan Amendment
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· The SCLS found a need for large and small lots to encourage economic diversity.
The lots in this proposal offer a variety of sizes, dimensions, and locations to the
adjacent streets.
. The Industrial Lands Study (ILS) found a 2,432-2,954 acre Metro-Wide surplus of
buildable industrial land. Based on projected employment estimates, the ILS
found no need for Heavy Industrial land in the future.
. There is potential for future businesses at the J.P. Hammer Industrial Park to serve
adjacent businesses (i.e. Weyerhaeuser). Presently, no services or conveniences
are available in this area.
· This property will create more job possibilities by providing more commercial
lands in the city for business development. This site previously was a log pond
and did not provide any land for jobs.
This plan amendment is consistent with Goal 9. This proposal will provide much needed
commercial land that can increase businesses and jobs in Springfield. Lane Metro
Partnership believes this change will attract more and better jobs to Springfield. This
proposal will create an area that is a mixture of commercial and industrial development,
increasing economic diversity.
GOAL 10 - HOUSING
This goal specifies that each city must plan for and accommodate needed housing types,
such as multifamily and manufactured housing.
This proposal will not impact the housing inventory. The result wiI1 not be an increase or
decrease in the inventory of available housing. There will be a decrease in the amount of
Heavy Industrial land and an increase in the amount of Commercial land. Housing
inventory studies exist for the Springfield area, but they are not applicable to this
proposed project.
GOAL 11 - PUBLIC FACILITIES AND SERVICES
Goal II calls for efficient plalliling of public services such as sewers, water, law
enforcement, and fire protection.
This property is located within the city limits and there are a full range of urban facilities
and services that are available to the subject property. Much of this area is still
undeveloped. The City of Springfield has strict public improvement processes and
guidelines that are followed when vacant property is developed.
GOAL 12 - TRANSPORTATION
42/1d Street Metro Plan / Refinement Plan Amendment
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The goal aims to provide "a safe, convenient and economic transportation system."
The TPR requires the following with respect to comprehensive plan amendments as they
relate to local, state, and regional transportation system plans ("TSPs"):
(1) Amendments to flmctional plans, acknowledged comprehensive plans, and land use
regulations which significantly affect a transportation facility shall assure that allowed
land uses are consistent with the identified function, capacity, and level of service of the
facility. This shall be accomplished by either:
(a) Limiting allowed land uses to be consistent with the planned flmction,
capacity and level of service of the transportation facility;
(b) Amending the TS? to provide transportation facilities adequate to
support the proposed land uses consistent with the requirements of this
division; or
(c) Altering land use designations, densities, or design re,quirements to
reduce demand for automobile travel and meet travel needs through other
modes.
(2) A plan or land use regulation amendment significantly affects a transportation
facility if it:
(a) Changes the functional classification of an existing or planned
transportation facility;
(b) Changes standards implementing afunctional classification system;
(c) Allows types or levels of land uses which would result in levels of travel
or access which are inconsistent with the functional classification of a
transportation facility; or
(d) Would reduce the level of service ofthefacility below the minimum
acceptable level identified in the TSP.
This plan amendment is consistent with Goal 12 - Transportation. In 2003 the Hammer
Propertv Traffic Impact Study was conducted in accordance with this plan amendment
and zone change. The 2003 study found the following:
"The development plans for the property have now changed and a plan amendment and
zone change is being proposed for a portion of the site amounting to a little less than half
of the total acreage. This traffic impact analysis required for the plan amendments and
zone changes finds that refinements of the transportation model for the metropolitan area
have resulted in reduces traffic growth on 42nd Street. The operational analysis of study
area intersections finds that mitigation measures will still be required for the existing
development allowed under the current plan designation and zoning. If these same
mitigation measures are applied to the study area for the new development plans with the
proposed plan amendment and zone changes, there will be no significant impact to the
42/Jd Street Metro Plan / Refinement Plan Amendment
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state or city transportation system. Therefore we conclude that the proposed plan
amendments and zone changes should be approved. This conclusion is supported by the
"ODOT Development Review Guidelines ", April 2002, section 3.1.08 under
Transportation Planning Rule. Review, which states: "If the TSP has insufficient planned
improvements, then improvements acceptable to the state and local government may be
identified and become part of the land decision. "
The 2003 Traffic Impact Study specifically addresses the transportation issues that will be
a result of the Metro Plan and Refinement Plan Amendment. The study states the
following:
The operational analysis shows that the study area intersections will have sufficient
capacity to handle the additional traffic generated by the proposed plan amendments and
zone changes.
This traffic study includes specific sections on site trip generation, site trip distribution,
anticipated transportation system improvements and intersection capacity analysis for the
current plan and proposed plan. Specific miti'gation measures are also presented. A copy
of this Traffic Impact Study is included with this submittal.
GOAL 13- ENERGY CONSERVATION
Goal 13 declares that "land and uses developed on the land shall be managed and
controlled so as to maximize the conservation of all forms of energy, based upon sound
economic principles."
Approval of the Inventory is .not likely to have a direct impact on efforts to conserve
energy. As such this goal is not applicable to evaluation 0 fthis proposal.
GOAL 14- URBANIZATION
This goal requires cities to estimate future growth and needs for land and then plan and
zone enough land to meet those needs. This property has already been transitioned from
rural to urban land. It has been transformed from an abandoned log pong into an
Industrial Park. This land is urban property and part of the City of Springfield Land
Inventory.
GOAL 15 - WILLAMETTE RIVER GREENWAY
. Goal 15 sets forth procedures for administering the 300 miles of greenway that protects
the Willamette River.
That portion of the Willamette River that flows through the Springfield area is an
inventoried resource site (site W NWB).. Adoption of the Springfield Inventory of
41"1 Street Metro Plan I Refinemenr Plan Amendment
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Natural Resource Sites does not change the City's existing standards for development
with respect to the Willamette River Greenway. Future protection measures adopted as
part of a program of protection for the River may modify or add to existing development
standards described in Article 25- Willamette Greenway Overlay District, of the
Springfield Development Code.
GOAL 16 - ESTUARINE RESOURCES
Not applicable to this application.
GOAL17-COASTALSHORELANDS
Not applicable to this application.
GOAL 18 - BEACHES AND DUNES
Not applicable to this application.
GOAL 19 - OCEAN RESOURCES
Not applicable to this application.
CONSISTENCY WITH METRO PLAN
This proposal is consistent with the Metro Plan. The Metro Plan's Economic Element
finds that an adequate supply of commercial and industrial lands is essential and needs to
be available. The Eugene-Springfield metropolitan area must also take advantage of and
encourage further diversification of area's economic activities. This Metro Plan
Amendment, Mid-Springfield refinement Plan Amendment and zone change will convert
lands from Heavy Industrial, a classification with an overabundance ofland, to
Community Commercial, a classification in need of more land, thus providing more
economic diversification and balance.
42"d Street Metro Plan / Refinement Plan Amendment
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ATTACHMENTS
. Map Layout of Proposed Zoning Changes
. Map Indicating Current Land Use
. Map Indicating Zoning and Vicinity
. Map Indicating Proposed Land Use
. 2003 Hammer Industrial Subdivision Plan Amendments and Zone Change Traffic
Impact Study
. Letter from Jack Roberts of Lane Metro Partnership
42"d Street Metro Plan I Refinement Plan Amendment
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