HomeMy WebLinkAboutMiscellaneous APPLICANT 4/21/2004
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FINDINGS OF FACT IN SUPPORT OF APPROVAL
JP HAMMER INDUSTRIAL PARK METRO PLAN AMENDMENT
CITY FILE NO. DATE: ,2005
Following are Findings of Fact Supporting Approval of JP Hammer's Request to Re-
Designate on the Metro Plan General Diagram 6.2 Acres of Land from Heavy Industrial
(HI) to Commercial (C):
DECISION CRITERIA
SDC Section 7.070(3) provides the criteria for approval of a plan amendment as follows:
"(3) CRITERIA FOPR APPROVAL OF PLAN AMENDMENT Thefollowing criteria shall be
applied by the City Council in approving or denying a Metro Plan amendment application:
(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. "
Following is a discussion ofthe above decision criteria for a Metro Plan Amendment:
"(a) The amendment must be consistent with the relevant statewide planning goals adopted by
the Land Conservation and Development Commission; "
Each applicable Statewide Planning Goal is addressed below:
GOAL ]- CITIZEN INVOLVEMENT
Section 7.080 of the SDC describes that plan amendments are subject to public hearings before
the planning commission and City Council. This established City program ensures citizen
involvement in land use related decisions in a manner which is consistent with state statutes and
regulations and this Statewide Planning Goal.
GOAL 2 - LAND USE PLANNING
The City of Springfield's land use planning process is spelled out in the SDC and ensures
consistency with the provisions of this goal in effecting any changes to a land use plan or
implementing ordinance. This process is mandated in Section 7.080 of the SDC and is an
integral component of the decision making process to which this application is subject.
GOAL 3 -AGRICULTURAL LANDS
This goal is not applicable to this application, as no agricultural lands as defined by state statute
and rule are involved in the request.
GOAL 4 - FOREST LANDS
This goal is not applicable to this application, as no forest lands as defined by state statute and
rule are involved in the request. . . ti / If ~oL{ _
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 2
GOAL 5 - OPEN SPACES, SCENIC AND HISTORIC AREAS AND NATURAL RESOURCES
Upon a review of the Eugene / Springfield Metro Plan; the Mid-Springfield Refinement Plan; the
Draft Natural Resources Special Study; the US Fish and Wildlife Service's National Wetlands
Inventory Map; the Draft Springfield Wetlands Inventory Map;and the list of Historic
Landmarks, the consultant has discerned that there apparently are no inventoried natural
resources or historic features on this site. Wetlands indicated on the National Wetlands
Inventory were former log ponds which have been filled in compliance with local, state and
federal regulations.
This Statewide Planning Goal is not applicable to this request because none of the types of
resources contemplated by the goal would be effected by the proposal.
GOAL 6 - AIR, WATER AND LAND RESOURCES QUALITY
This goal speaks primarily to responsibilities of local governments in adopting plans which
facilitate the protection and monitoring of air and water resources. Among other provisions, the
goal suggests physically separating land uses with conflicting or different impacts upon air and
water quality.
The specific wording of this part of the pertinent goal reads:
"3. Plans should buffer and separate those land uses which create or lead to conflicting
requirements and impacts upon the air, water and land resources."
The plan diagram changes proposed herein are part of a larger, holistic master planning concept
for the industrial park. Described in whole, that ultimate vision is for:
A) Re-designation and re-zoning, from Heavy Industrial to (Community) Commercial, of about
6.2 acres of the subject property;
B) Implementation of a car sales lot on the re-zoned parcels fronting on 42nd Street; and
C) Re-zoning the smaller, westerly lots (5-8) from Heavy Industrial (HI) to Mixed Use
Employment (MUE). The MUE Zone is consistent with the "Heavy Industrial" Metro Plan
designation, so no plan amendment is necessary to accommodate this particular aspect of the
proposal.
The objective of Goal 6 to "buffer and separate those land uses which create or lead to
conflicting requirements and impacts" would be promoted by the ultimate re-zoning of lots 5-8
from Heavy Industrial (HI) to Mixed Use Employment (MUE), a change which would decrease
the interface between industrial-zoned lands in the existing park and adjacent residential uses to
the immediate west (Adams Plat, First Addition). While this Metro.Plan Amendment does not
directly affect Lots 5-8, approval of this application, and the subsequent re-zoning requests,
would ultimately facilitate implementation of the applicant's master plan vision for the site. This
would result in the removal of 5.31 acres of current industrial zoning from an area adjacent to
residentially zoned property to the west.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 3
The Mid Springfield Refinement Plan is rife with references to the incompatibility of industrial
with residential uses, pointing specifically to past conflicts which have arisen in this portion of
the City.
Obviously, residential, commercial and industrial land uses are respectively on an uphill gradient
with respect to demands for and impacts upon air, water and land resources. Speaking generally,
industrial uses require greater land bases and more substantial commitment of other natural
resources as compared with commercial uses, which in turn generally have more needs than
single family residential uses. Likewise, impacts upon air and water quality can be seen to rise
progressing from single family residential to commercial and through industrial types of
development.
Residences typically only affect air quality through either wood burning stoves or automobile
trips associated with dwellings. Commercial developments can often have a.more significant
adverse impact upon air quality due to the greater number of vehicles trips generally associated
with those as compared with a residence, and increased emissions tied with those additional trips.
Industrial development, however, can involve processing, burning and other activities which can
more often result in externalities such as smoke, odor, noise, and ground and surface water
contamination or pollution.
Locating development with heightened environmental impacts, such as can be associated with
many industrial land use types, adjacent to an established neighborhood increases the risk of
adverse impacts upon the existing residential uses. The creation of a new MUE Zone in this
location of the existing industrial park would be consistent with the above discussed objective of
Goal 5 to "buffer and separate those land uses which create or lead to conflicting requirements
and impacts upon the air, water and land resources" by eliminating the direct interface of
industrial and residential lands and buffering these conflicting types of activities with
intermittent office and other lesser-impacting commercial uses.
GOAL 7 - AREAS SUBJECT TO NA TURAL DISEASTERS AND HAZARDS
This property is not subject to any known or inventoried natural hazards which are site specific
and do not apply region-wide. This proposal is consistent with this goal.
GOAL 8 - RECREA TIONAL 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. This
proposed change would not affect recreation needs or facilities pertinent to the Mid-Springfield
area.
GOAL 9 - ECONOMIC DEVELOPMENT
This proposal is in compliance with Goal 9 - Economic Development. Goal 9 requires that an
adequate amount of commercial and industrial land be provided to meet projected needs through
the planning period.
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Findings ofF act
JP Hammer Metro Plan Amendment
City of Springfield, June,2005 Page 4
In this case, industrial and commercial land needs anal yses identified the respective acreages of
these lands needed to accommodate area growth projected through the years 2010 and 2015,
respective I y.
Upon a review of the 2000 Springfield Commercial Lands Study, SCLS and portions of Eugene
Springfield Metro Area Industrial Lands Study (ILS), the following was discerned:
. The ILS found a huge surplus of industrial-zoned land (between 2,432-2,954 acres of
surplus) in the Metro area. This study concludes that about 650 to 1,172 acres of
industrial land would be needed to accommodate market demands in the entire Metro
area through the year 2010, but that the Springfield UGB alone at the time of that writing
had over 700 acres (708.8 acres in '92) of developable industrial land.
. In addition to the above, based on projected employment estimates, the SCLS states the
ILS found that there was no future need or demand whatsoever for "Heavy
Industrial" Zoned land in the Eugene Springfield metro area.
. By comparison, the City has a substantial deficit of commercial land relative to its
projected need. At an annual absorption rate of seventeen (17) acres per year, the SCLS
found that 255 acres of commercial land will be needed to meet the City's demands
through 2015.
The SCLS indicates that at the time of that writing the City had just 97 acres of
developable commercial land, including 12 acres of land which was considered as
"redevelopable". This represents a very substantial deficit as compared with an identified
need for 255 acres of viable and vacant commercial land.
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The SCLS indicates that the associated Citizen Advisory Committee (CAe) noted that
255 acres was likely a conservative estimate of commercial land needs through 2015,
based upon a "more recent" annual absorption rate, from 1995 1999, of 36 acres per year.
Due to these observed increased rates of commercial growth, actual demands for
developable commercially-zoned land in the Springfield UGB could easily surpass
the 255 acre mark between the years 1995 and 2015 (the original planning period
utilized in the SCLS). This means that the already very substantial deficit of vacant
commercial land demonstrated in the preceding paragraph in reality could be
significantly larger.
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Not only did the SCLS conclude that the existing supply of vacant industrially-zoned
land was adequate to meet projected needs through the planning period, the inventory
did not even include the subject site as part of this vacant industrial land supply,
since it was already committed to log ponds associated with a mill site. In short, the
acreage proposed for re-designation from an industrial to a commercial plan designation
was never intended or planned for use in meeting future industrial development needs of
the City.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 5
. Rezoning and re-designation were identified in the SCLS as desired methods for
increasing the commercial land supply in Springfield's UGB. Any such actions must be
appropriately supported by the necessary findings of a traffic analysis; an analysis of
impacts on existing neighborhoods; and an analysis of other associated constraints.
Impacts upon traffic of the proposed change are discussed in the applicant's Traffic
Impact Study and under Goal 12, Transportation.
As stated previously, this proposal represents one component of a larger master plan for
this site involving re-zoning of just over six acres (Lots 9,11-13,15 & 16) from Heavy
Industrial to Community Commercial, which change requires prior approval of a Metro
Plan diagram amendment. An additional component of the plan involves applying to re-
zone Lots 5-8 from Heavy Industrial to Mixed Use Employment (MUE), a designation
which is consistent with the Heavy Industrial plan designation. This change would be
proposed in conjunction with the future application for re-zoning Lots 9,11-13,15 & 16
to Community Commercial, in event of approval of the current request.
This desired removal of about five acres of industrially-zoned land from an area adjacent
to an established residential neighborhood would accrue positive impacts for the nearby
residents. The conclusion that this would benefit the residential uses is sllPported by
findings in this document discussing the subject refinement plan's policies concerning
conflicts between industrial and residential zones in this area of town, specifically.
Please see subsequent discussions of this applicant's narrative for additional details in
this respect.
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The SCLS also raised concern about the quality of developable parcels in commercial
zoning, and concluded that the City has a lack of readily developable commercial
lands to meet future demands. Parcels proposed for re-designation on the Metro and
Refinement Plans, in order to facilitate subsequent application for re-zoning to
Community Commercial, range in size from .38 to 1.68 acres in area. Approval would
increase the diversity of commerciaIly-zoned parcel sizes in the UGB, in addition to
adding much needed total acreage to the commercial lands inventory.
. There is potential for future businesses at the J.P. Hammer Industrial Park to provide
services to employees of adjacent and nearby businesses (e.g., Weyerhaeuser). Presently,
no services or conveniences are available in this immediate area. Any such inter-
connection of utility among land uses within or in proximity to the proposed industrial
and business park would have the added benefit of reducing demand for automobile trips.
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The parcels proposed for plan diagram amendment from Heavy Industrial to Commercial
range from .38 acres to 1.68 acres in size. As such, they are more suited to a wide range
of commercial uses than industrial uses, most of which generally will require or prefer
much larger lot areas.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 6
This plan amendment is consistent with the applicable economic development and diversity
objectives of Goal 9. This proposal will provide much needed commercial land in a jurisdiction
that has identified a substantial and severe deficit in their commercial lands inventory, and will
simultaneously balance the City's land supply by removing from the inventory unneeded
industrial land.
As discussed above, this proposal would not have an adverse impact upon the City's ability to
meet projected needs for industrial development because:
A) A significant surplus of industrial zoned land exists in the Springfield UGB and greater
metro area;
B) The subject parcels are too small to generally be of utility as industrial zoned parcels;
C) It has been determined that no Heavy Industrial zoned land is necessary for meeting the
City's projected demands; and
D) This proposal would not remove land from the supply which was considered by the ILS as
vacant industrial land, since it was excluded from the inventory as either significantly
constrained or developed, and was never anticipated to accommodate future industrial growth.
GOAL 10-HOUSING
This proposal will not impact the housing inventory, as no residential property or designations
are applicable to this request.
GOAL 11 - PUBLIC FACILITIES AND SERVICES
This property is located within the city limits and is fully served with public facilities and
services. As discussed, industrial uses typically have greater demands for, among other
resources and facilities, water. Significant amounts of industrial development can place a burden
on municipal water supplies and systems. Aside from the likelihood that less water intensive
uses will typically locate in commercial and office related developments than in l)1any strictly
industrial areas, suggesting that future water consumption may be decreased by the proposal, this
proposal would have little or no impact upon other public facilities and services.
GOAL 12 - TRANSPORTATION
This plan amendment is consistent with Goal 12 - Transportation, and Oregon Administrative
Rules (OAR) 660-0]2. Specifically:
Conformance of any development on the site with the specific requirements of OAR 660-0]2-
0045(3)-(5) will appropriately be ensured at site plan review or prior to making application for
building permit(s).
Following is a discussion of aspects of this rule most pertinent to the current Plan Amendment
request.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 7
"660-012-0060
Plan and Land Use Regulation Amendments
(1) Where an amendment to afunctional plan, an acknowledged comprehensive plan, or a land
use regulation would significantly affect an existing or planned transportation facility, the local
government shall put in place measures as provided in section (2) of this rule to assure that
allowed land uses are consistent with the identifiedfunction, capacity, and performance
standards (e.g. level of service, volume to capacity ratio, etc.) of the facility. A plan or land use
regulation amendment significantly affects a transportation facility if it would:
(a) Change the functional classification of an existing or planned transportation facility
(exclusive of correction of map errors in an adopted plan);
(b) Change standards implementing afunctional classification system; or
(c) As measured at the end of the planning period identified in the adopted transportation system
plan:
(A) Allow land uses or levels of development that would result in types or levels of travel or
access that are inconsistent with the functional classification of an existing or planned
transportation facility;
(B) Reduce the performance of an existing or planned transportationfacility below the minimum
acceptable performance standard identified in the TSP or comprehensive plan; or
(C) Worsen the performance of an existing or planned transportation facility that is otherwise
projected to perform below the minimum acceptable performance standard identified in the TSP
or comprehensive plan.
Access Engineering has prepared a detailed Traffic Impact Study (TIS) in support of this
application, and that document is attached to this written statement. The TIS describes the
foreseeable change in traffic impacts and patterns which would likely be associated with this
change, and describes specific mitigation measures appropriate to address those.
This proposal would not result in the types or degrees of impacts described in OAR 660-012-
0060(I)(c)(A)-(C), above. With implementation of the applicant's proposed mitigation plan,
described in the attached Traffic Impact Study (TIS), this proposed plan amendment would
maintain consistency with the functional classification of existing and planned transportation
facilities in the vicinity and would not reduce the performance of any existing or planned
transportation facility below the minimum acceptable performance standard identified in the
Springfield TSP.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 8
Finally, no existing or planned transportation facility which is currently projected to function
below any identified minimum acceptable performance standard would be worsened under this
proposal.
Pages I and 2 of the TIS contain the following excerpted paragraphs describing the method for
arriving at the applicant's proposed mitigation plan. That portion of the attached TIS reads:
"An operational analysis of the study area for the PM peak hour in the horizon year 2020
was conducted assuming the TransPlan programmed projects are in place; 42nd Street
improved to a three-lane urban standard, signalization of 42nd Street at Marcola Road,
and signalization of 42nd Street at the Eugene-Springfield Hwy. Westbound Ramp
intersection. The results of the analysis show that all study area intersections will operate
. within the mobility standards of ODOT and the City of Springfield through 2020. A
mitigation plan has been presented which would relieve the queuing problems at the
closely spaced Olympic Street and E-S Hwy. EB Ramps intersections along 42nd Street.
The mitigation plan would be required under the current plan and zoning, and would not
require widening of 42nd Street beyond what is planned in TransPlan. The mitigation
plan includes:
Q) 42nd Street from 250 feet south of Olympic Street the E-S Hwy. WB
Ramps - Utilizing the programmed 3-lane section, change the center-turn-lane to a
northbound through lane and allow left-turns from this lane at Olympic Street and the E-S
Hwy. EB Ramps intersections.
Q) Provide protected-permitted left-turn phasing at those intersections,
leading at Olympic and lagging at E-S Hwy. EB Ramps. North of the E-S Hwy. EB
Ramps, the center lane would become a left-turn only lane approaching the E-S Hwy.
WB Ramps intersection.
Q) At 42nd and the E-S Hwy. EB Ramps - Provide an overlap phase on the
existing single right-turn lane.
Q) At 42nd and Olympic - Change the striping on the eastbound approach to a
left-turn lane and a left+right-turn lane.
Q)
At 42nd and Industrial - Provide a traffic signal when warranted.
These improvements provide additional capacity and storage at the study area
intersections which would accommodate the development traffic from both the Current
and Proposed Plans."
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 9
The applicant's TIS notes that the proposed mitigation plan is not primarily intended to address
ODOT mobility standards (i.e., volume to capacity ratios) associated with existing or planned
facilities in the area, but rather corrects an existing queuing problem based on the insufficient
physical separation between Olympic Street and the freeway interchange to the north.
(2) Where a local government determines that there would be a significant effect, compliance
with section (1) shall be accomplished through one or a combination of the following:
(a) Adopting measures that demonstrate allowed land uses are consistent with the
planned function, capacity, and performance standards of the transportation facility.
(b) Amending the TSP or comprehensive plan to provide transportation facilities,
improvements or services adequate to support the proposed land uses consistent with the
requirements of this division; such amendments shall include a funding plan or
mechanism consistent with section (4) or include an amendment to the transportation
finance plan so that the facility, improvement, or service will be provided by the end of
the planning period.
(c) Altering land use designations, densities, or design requirements to reduce demand
for automobile travel and meet travel needs through other modes.
(d) Amending the TSP to modify the plannedfunction, capacity or performance standards
of the transportation facility.
(e) Providing other measures as a condition of development or through a development
agreement or similar funding method, including transportation system management
measures, demand management or minor transportation improvements.
Local governments shall as part of the amendment specify when measures or improvements
provided pursuant to this subsection will be provided.
This section is not applicable based on the information provided in response to subsection (l),
above, that with implementation of the proposed mitigation plan, which consists of almost
exclusively prior programmed public improvements, no significant effect on any existing or
planned transportation facility is anticipated.
(3) Notwithstanding sections (1) and (2) of this rule, a local government may approve an
amendment that would significantly affect an existing transportation facility without assuring
that the allowed land uses are consistent with the function, capacity and performance standards
of the facility where:
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Findings of Fact
, JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 10
(a) The facility is already performing below the minimum acceptable performance
standard identified in the TSP or comprehensive plan on the date the amendment
application is submitted;
(b) In the absence of the amendment, planned transportation facilities, improvements and
services as setforth in section (4) of this rule would not be adequate to achieve
consistency with the identifiedfunction, capacity or performance standardfor that
facility by the end of the planning period identified in the adopted TSP;
(c) Development resulting from the amendment will, at a minimum, mitigate the impacts
of the amendment in a manner that avoids further degradation to the performance of the
facility by the time of the development through one or a combination oftrimsportation
improvements or measures;
(d) The amendment does not involve property located in an interchange area as defined
in paragraph (4)(d)(C); and
(e) For affected state highways, ODOT provides a written statement that the proposed
funding and timing for the identified mitigation improvements or measures are, at a
minimum, sufficient to avoidfurther degradation to the performance of the affected state
highway However, if a local government provides the appropriate ODOT regional office
with written notice of a proposed amendment in a manner that provides ODOT
reasonable opportunity to submit a written statement into the record of the local
government proceeding, and ODOT does not provide a written statement, then the local
government may proceed with applying subsections (a) through (d) of this section
The applicant's proposed mitigation plan would avoid significantly affecting any existing
transportation facility, as described by this rule, so this subsection is not applicable.
(4) Determinations under sections (1)-(3) of this rule shall be coordinated with affected
transportation facility and service providers and other affected local governments,
(a) In determining whether an amendment has a significant effect on an existing or
planned transportation facility under subsection (l)(c) of this rule, local governments
shall rely on existing transportation facilities and services and on the planned
transportation facilities, improvements and services set forth in subsections (b) and (c)
below.
(b) Outside of interstate interchange a;eas, the following are considered planned
facilities, improvements and services;
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page II
(A) Transportation facilities, improvements or services that are funded for construction
or implementation in the Statewide Transportation Improvement Program or a locally or
regionally adopted transportation improvement program or capital improvement plan or
program of a transportation service provider.
(B) Transportation facilities, improvements or services that are authorized in a local
transportation system plan and for which afunding plan or mechanism is in place or
approved. These include, but are not limited to, transportation facilities, improvements or
services for which: transportation systems development charge revenues are being
collected; a local improvement district or reimbursement district has been established or
will be established prior to development; a development agreement has been adopted; or
conditions of approval to fund the improvement have been adopted.
(C) Transportation facilities, improvements or services in a metropolitan planning
organization (MPO) area that are part of the area'sfederally-approved, financially
. constrained regional transportation system plan.
(D) Improvements to state highways that are included as planned improvements in a
regional or local transportation system plan or comprehensive plan whenODOT
provides a written statement that the improvements are reasonably likely to be provided
by the end of the planning period.
(E) Improvements to regional and local roads, streets or other transportation facilities or
services that are included as planned improvements in a regional or local transportation
system plan or comprehensive plan when the local government(s) or transportation
service provider(s) responsible for the facility, improvement or service provides a written
statement that the facility, improvement or service is reasonably likely to be provided by
the end of the planning period.
(c) Within interstate interchange areas, the improvements included in (b)(A)-(C) are
considered plannedfacilities, improvements and services, except where:
(A) ODOT provides a written statement that the proposed funding and timing of
mitigation measures are sufficient to avoid a significant adverse impact on the Interstate
Highway system, then local governments may also rely on the improvements identified in
paragraphs (b)(D) and (E) of this section; or
(B) There is an adopted interchange area management plan, then local governments may
also rely on the improvements identified in that plan and which are also identified in
paragraphs (b)(D) and (E) of this section.
The subject site is within an interstate interchange area but would not result, as stated, in a
significant effect on an existing or planned transportation facility under subsection (l)( c) of this
rule. There is no adopted interchange area management plan in effect for this area.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June,2005 Page 12
(5) The presence of a transportation facility or improvement shall not be a basisfor an
exception to allow residential, commercial, institutional or industrial development on rural lands
under this division or OAR 660-004-0022 and 660-004-0028.
This proposal does not involve any rural lands, and as such, this subsection is not applicable to
the current request.
(6) In determining whether proposed land uses would affect or be consistent with planned
transportationfaGilities as provided in 0060(1) and (2), local governments shall give full credit
for potential reduction in vehicle tripsfor uses located in mixed-use, pedestrian-friendly centers,
and neighborhoods as provided in (a)-(d) below;
(a) :4bsent adopted local standards or detailed information about the vehicle trip reduction
benefits of mixed-use, pedestrian-friendly development, local governments shall assume that uses
located within a mixed-use, pedestrian-friendly center, or neighborhood, will generate 10%
fewer daily and peak hour trips than are specified in available published estimates, such as those
provided by the Institute of Transportation Engineers (ITE) Trip Generation Manual that do not
specifically account for the effects of mixed-use, pedestrian-friendly development. The 10%
reduction allowed for by this section shall be available only if uses which rely solely on auto
trips, such as gas stations, car washes, storagefacilities, and motels are prohibited,
(b) Local governments shall use detailed or local information about the trip reduction benefits of
mixed-use, pedestrian-friendly development where such iriformation is available and presented
to the local government. Local governments may, based on such information, allow reductions
greater than the 10% reduction required in (a);
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(c) Where a local government assumes or estimates lower vehicle trip generation as provided in
(a) or (b) above, it shall assure through conditions of approval, site plans, or approval standards
that subsequent development approvals support the development of a mixed-use, pedestrian-
friendly center or neighborhood and provide for on-site bike and pedestrian connectivity and
access to transit as providedfor in 0045(3) and (4).
The provision of on-site bike and pedestrian connectivity and access to transit may be
acc'pmplished through application of acknowledged ordinance provisions which comply with
0045(3) and (4) or through conditions of approval or findings adopted with the plan amendment
that assure compliance with these rule requirements at the time of development approval; and
(d) The purpose of this section is to provide an incentive for the designation and implementation
of pedestrian-friendly, mixed-use centers and neighborhoods by lowering the regulatory barriers
to plan amendments which accomplish this type of development. The actual trip reduction
benefits of mixed-use, pedestrian~friendly development will vary from case to case and may be
somewhat higher or lower than presumed pursuant to (a) above.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 13
The' Commission concludes that this assumption is warranted given general information about
the expected effects of mixed-use, pedestrianfriendly development and its intent to encourage
changes to plans and development patterns, Nothing in this section is intended to affixt the
application (if provisions in local plans or ordinances which provide for the calculation or
assessment of systems development charges or in preparing conformity determinations required
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under the federal Clean Air Act
Page 10 of the applicant's TIS begins with the following sentence: "Even though the proposed
pial) amendments and zone change would result in a mixed-use development site, no adjustments
are :madefor internal trips." In fact, although the proposal is for a controlled mix of commercial
and.industrial uses, this does not appear to qualify as "mixed use" development under the
transportation planning rule (OAR 660-012- 0060(8)), This section is not applicable to this
proposaL
(7) Amendments to acknowledged comprehensive plans and land use regulations which meet all
of the criteria listed in (a)-(c) below shall include an amendment to the comprehensive plan,
transportation system plan the adoption of a local street plan, access management plan, future
street plan or other binding local transportation plan to provide for on-site alignment of streets
or accessways with existing and planned arterial, collector, and local streets surrounding the
site'as necessary to implement the requirements in Section 0020(2)(b) and Section 0045(3) (if
this division:
(a) The plan or land use regulation amendment results in designation of two or more
acres of landfor commercial use;
(b) The local government has not adopted a TSP or local street plan which complies with
Section 0020(2)(b) or, in the Portland Metropolitan Area, has not complied with Metros
requirement for street connectivity as contained in Title 6, Section 3 of the Urban Growth
Management Functional Plan; and
(c) The proposed amendment would significantly affict a transportation facility as
provided in 0060(1).
Although the proposed amendment would result in the designation of more than two acres of
commercially-zoned land, the following two necessary criteria from this section (items (b) and
(c), above) are not met. More specifically, the City of Springfield does have an adopted
Transportation System Plan (TSP) and, as discussed above, the proposal would not significantly
affect a transportation facility as provided in Subsection 0060(1),
Based upon the above findings of fact, this proposal is considered as consistent with Oregon's
Statewide Planning Goal 12.
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Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 14
GOAL 13 - ENERGY CONSERVATION
The ultimate development of this property will rely on energy efficient building codes, fixtures
and appliances. The configuration of access and internal streets, lot layout, and parcel
orientation in this industrial and business park make the most efficient use of the existing
transportation network, and facilitate substantial southerly exposure for maximum solar benefit,
reducing heating and lighting costs for future and existing uses.
GOAL 14 - URBANIZATION
This property is existing urban land and is not subject to urbanization policies and procedures.
GOAL 15 - WILLAMETTE RIVER GREENWAY
The subject site is not located on or near the Willamette River. This Statewide Planning Goal is
not applicable to this application.
GOAL 16 - ESTUARINE RESOURCES
This Goal is not applicable to this application.
GOAL 17 - COASTAL SHORELANDS
This Goal is not applicable to this application.
GOAL 18-BEACHESANDDUNES
This Goal is not applicable to this application.
GOAL 19 - OCEAN RESOURCES
This Goal is not applicable to this application.
"(b) Adoption of the amendment must not make the Metro Plan internally inconsistent. "
This section of the applicant's narrative discusses the applicable provisions of the Eugene /
Springfield Metro Area General Plan, and is followed by a discussion ofthe Mid:Springfield
Refinement Plan policies.
CONSISTENCY WITH METRO PLAN
This proposal is consistent with the Metro Plan. The Metro Plan's Economic Element finds that
maintaining an adequate supply of vacant, buildable commercial and industrial lands is essential.
The document, along with the Springfield Commercial Lands Study, also recognizes that the
Eugene-Springfield metropolitan area must take advantage of and encourage further
diversification of the area's economic activities and base. This metro plan amendment and zone
challge would convert lands from Heavy Industrial, a classification whose supply is in significant
overabundance and with no need for any land in that designation projected on the planning
horizon, to Community Commercial, a classification whose supply in the Springfield UGB is in a
state of significant deficit as compared with expected demands.
Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 15
This change would bring more economic diversification, a compatible and efficient mix of land
uses within a combined business and industrial park, and help the City move toward a better
balance between land base needs and the available supply of land in the Springfield UGB.
.
.
The following Policies and other components of the Eugene Springfield Metro Area General
Plan appear most pertinent to this request:
The discussion under Section III-B, Economic Element, is not a Finding, Objective, Goal or
Policy, but an introductory statement which includes the following:
"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. "
This change would facilitate subsequent application for zone changes as described herein, to
effect a mixed business I industrial park, incorporating primarily office uses abutting the existing
single family residential neighborhood; various industrial uses internally, consistent with the
current plan for the park; and car sales along the site's frontage on 42nd Street.
ECONOMIC FINDINGS
Finding Number 1 of Section II-B reads:
"1. The structure of the Eugene-Springfield metropolitan area economy is undergoing a shift
away ji-om 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 non-manufacturing activities of trade, commercial and professional services, finance,
insurance, and real estate. "
In addition to supporting the above finding by facilitating more land area zoned to accommodate
the economic growth sectors listed above, 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. Further, the Industrial Lands Study (ILS) found a 2,432-2,954 acre
surplus of buildable industrial land. Based on projected employment estimates, the ILS found no
need for Heavy Industrial land in the future. The ILS found that, "This supply exceeds the
projected demand" (SCLS, 23). Further, City planning staff have indicated that the subject
property was not counted as part of the ILS' metro-wide inventory of vacant industrial land since
it was committed to log ponds at the time of that study's writing.
According to the Springfield Commercial Land Study (SCLS), ".. .there will be a continuing
need to provide commercial opportunities to serve the needs of Springfield's residents. ,.
Finding 12 of this section notes that there are currently inefficient uses of the City's land
resource base, and this proposal would address and improve on that situation by removing from
industrial zoning six acres of land consisting of six narrowly-configured, small parcels with
commercial-appropriate frontage on 42nd Street and Kathryn I 40th Street.
.
.
Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 16
INDUSTRIAL AND COMMERCIAL FINDINGS
Industrial Finding 4 ofthe Mid-Springfield Refinement Plan states "The lots in the Adams Plat
are often too small to accommodate the needs of new industrial development." This also applies
in particular to existing Lots 9, 11-13, 15 & 16 of the JP Hammer Industrial Park, which parcels
are the subject ofthis plan amendment request, as well as Lots 5-8, which will be proposed for
MUE zoning in the event of approval of the current application. These lots range in area
between .38 and 1.68 acres.
Also in the subject refinement plan is language under the heading "Criteria for Designating
Commercial Land', item I, which reads: "Recognize the predominance of commercial strip
development along Main Street and North 42nd by designating these areas for commercial use."
Since these subject parcels are too small to be of realistic utility for most types of heavy
industrial uses, as called for by the current plan, and because frontage on 42nd Street is
considered to be an appropriate and desirable location for providing commercial services and
uses, this proposal represents a more efficient use of the subject land resource. Objective II of
this section supports the applicant's approach in this regard.
Consistent with the intent of Finding 15 of this section, this proposal represents a thoughtfully
designed and controlled mixing of commercial and industrial uses in such a manner as to remove
an existing incompatible condition, in heavy industrial zoning west of 40th Street abutting single
family residential zoning and uses across 39tll Street.
This proposal would accommodate a future request on the part of the owner of the park to re-
zone that sector of the site to Mixed Use Employment, which is consistent with the current Metro
plan designation and would permit a wider variety of office and other lighter and non-industrial
uses. This is considered as an appropriate graduation of intensity of uses, and the MUE district
would thus constitute an effective and attractive buffer between Lot I O's future, heavy industrial
activities, and the existing neighborhood to the west. Please refer to the attached Plan
Amendment diagram for a graJ;hic illustration ofthis proposed protective measure for the
existing residences west of 39 Street.
ECONOMIC OBJECTIVES
The above discussion is also intended to demonstrate this proposal's consistency with Objectives
7 and 12 of this section.
ECONOMIC POLICIES
Policy 6 states: "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."
As stated, this proposal would facilitate a subsequent increase in the amount of undeveloped land
zoned for a wide range of lighter industrial and various commercial types of uses, commensurate
with projected needs of the City of Springfield.
.
.
Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 17
Please see also the attached correspondence from Mr. Jack Roberts, Executive Director of Lane
Metro Partnership, stating his expectation of the high marketability and appropriateness of this
proposal.
Policy 12 reads: "Discourage future Metro Plan amendments that would change development-
ready industrial lands (sites defined as short-term in the metropolitan Industrial Lands Special
Study, 1991) to non-industrial designations,"
This proposal would not conflict with Policy 12 because the subject site was not identified as
development ready or even vacant industrial land in the ILS, since it was simultaneously
committed to industrial mill use and severely constrained to development by virtue of being in
standing water cover at the time of the ILS' writing.
Policy 16 states: "Utilize processes and localcontwls, 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 piecemealfashion."
This proposal would retain the largest existing heavy industrial parcels in their current zoning
while simultaneously consolidating uses among five smalier lots currently zoned Heavy
Industrial but ultimately proposed for commercial zoning. This achieves both of the ends
identified in the above policy.
This proposal retains those existing parcels which front on the Southern Pacific Railroad in an
industrial designation, consistent with Policy 17.
Approval of this action would help to address the present and future commercial development
needs of the City, and is consistent with the stated economic elements and findings in the Metro
Plan.
ENVIRONMENTAL OBJECTIVES
Section III-E, Environmental Design Element, includes an objective that states that the
Community Commercial zone is appropriate next to mediinn and high density residential uses,
and in fact that these may be "integrated into a single overall complex, local regulations
permitting". This suggests that the proposed commercial designations are generally more
compatible with residential uses which already occur in the vicinity than is the current plan of
industrial, considering very differing statements which appear in the subject refinement plan
concerning the interface of industrial with residential uses.
TRANSPORTATION POLICIES
Policy F.9, Transportation Element, reads as follows:
.
.
Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, Z005 Page 18
"F9 Adopt by reference, as part of the Metro Plan, the 20-Year Capital Investment Actions
project lists contained in TransPlan. Project timing and estimated costs are not adopted as
policy. "
This policy encourages the City to fully fund and realize those projects identified in the
TransPlan, The identified TransPlan projects pertaining to this area would be necessary, as
discussed in the attached TIS, under either the current or proposed plan for the subject site,
Policy F, 15 states:
"F 15 Motor vehicle level of service policy:
1. Use motor vehicle level of service standards to maintain acceptable and reliable performance
on the roa~way system. These standards shall be usedfor:
(a) Identifying capacity deficiencies on the roadway system.
(b) Evaluating the impacts on roadways of amendments to transportation plans, acknowledged
comprehensive plans and land-use regulations, pursuant to the TPR (OAR 660-012-0060).
(c) Evaluating development applications for consistency with the land-use regulations of the
applicable local government jurisdiction. "
2. Acceptable and reliable performance is defined by the following levels of service under peak
hour traffic conditions: LOS E within Eugene's Central Area Transportation Study (CATS) area,
and LOS D elsewhere.
3. Performance standards from the OHP shall be applied on state facilities in the Eugene-
Springfield metropolitan area. "
As stated, the TIS finds no conflicts or deficiencies in the current or proposed plans with respect
to mobility or similar standards on the existing transportation network, the City's TSP, the TPR
or applicable land use regulations. The mitigation plan proposed in the TIS primarily addresses
an existing problem with cuing between Olympic and the 'interstate interchange area.
All of the facilities in the area presently operate at or above level of service (LOS) D except the
eastbound movements at the 4Znd Street and Eugene Springfield Hi~hway westbound (E-S Hwy.
WB) ramps, which operates at LOS F; northbound left turns on 4Zn Street @ Marcola Road
which operate at LOS E; and eastbound left turns at 4Znd Street and Industrial Avenue, LOS F.
The tables on pages IZ and 13 of the TIS provide two pertinent pieces of information: a) That
the LOS problems identified above will all be corrected by implementation of the subject
TransPlan projects included as the applicant's mitigation plan; and b) That this proposed change
would not impact or increase the severity ofthese existing conditions relative to the LOS of the
transportation facilities in the area.
.
.
Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 19
This proposal is consistent with this policy.
Policies F .22 through F .24 state:
"F 22 Construct and improve the region's bikeway system and provide bicycle system support
facilities for both new development and redevelopment/expansion.
F23 Require bikeways along new and reconstructed arterial and major collector streets.
F24 Require bikeways to connect new development with nearby neighborhood activity centers
and major destinations. "
These policies encourage the City to complete bicycle oriented transportation improvement
projects under the TransPlan and to require new development to likewise provide those
amenities. During the subdivision phase for this industrial park, easements through the subject
site were reserved to provide linkage with bicycle and pedestrian facilities to the east and
northwest. Specifically, there is a bike path on the east side of 42nd Street and a bike lane in
Olympic Street with which the proposed interior bicycle facilities will tie, to provide an
integrated and interconnected system in this part of Mid-Springfield. Sidewalks also exist within
and abutting the subject site.
CONSISTENCY WITH THE MID SPRINGFIELD REFINEMENT PLAN
The following findings and conclusions from the Mid-Springfield Refinement Plan appear most
pertinent to this application:
RESIDENTIAL FINDINGS
Residential Finding 15 identifies that there are "conflicts between the residential uses in Mid-
Springfield and Industrial and Commercial uses."
,
INDUSTRIAL FINDINGS
Industrial Finding I states: "The mix of industrial and residential uses in the Adams Plat has
resulted in conflicts between the uses".
This proposal would work to remove the interface of four existing industrial parcels with the
residential neighborhood to the west by supporting the applicant's master plan for this site,
which ultimately calls for rezoning the subject lots from Heavy Industrial to Mixed Use
Employment (MUE). That re-zoning request would follow shortly after approval of this plan
designation amendment request.
As discussed previously, Industrial Finding 4 states "The lots in the Adams Plat are often too
small to accommodate the needs of new industrial development."
.
.
Findings of Fact
JP Hammer Metro Plan Amendment
City of Springfield, June, 2005 Page 20
This applies in particular to existing Lots 9, II-B, 15 & 16 of the JP Hammer Industrial Park,
which parcels are the subject ofthis plan amendment request, as well as Lots 5-8, which will be
proposed for MUE zoning in the event of approval of the current application. All of the above
parcels range in area between .38 and 1.68 acres each.
INDUSTRIAL POLICIES
Based upon the above facts and findings, this proposed action would provide clear and
substantial support for Industrial Policy 7, which notes: "There is a need to reduce the conflicts
which arise when Heavy Industrial uses locate adjacent to Residential uses."
The plan's "Criteria for Designating Industrial Lane!' immediately follow the Industrial Policies
in the plan, and reinforce the appropriateness and need for larger lots for industrial zoning, as
opposed to those currently proposed for re-designation to commercial on the Metro Plan
diagram. This section also directs the City to "Minimize areas where Industrial and Residential
designations abut'..
The plan's "Criteria for Designating Commercial Lane!', immediately following the refinement
plan's Commercial Policies, includes item 1, which reads: "Recognize the predominance of
commercial strip development along Main Street and North 42nd by designating these areas for
commercial use." This recognizes the appropriateness of commercial zoning specifically along
North 42nd Street, the location of the proposed plan amendments from Heavy Industrial to
Commercial.
TRANSPORTATION POLICIES
Transportation Policy 2 would be supported since transportation facilities have been previously
approved and constructed specifically to serve the industrial and business park, and no
corrimercial or industrial traffic will be routed onto any local or residential street(s).
Transportation Policy 4 would be supported by the existence of sidewalks and an adequate right
of ~ay adequate width on 40th Street / Industrial A venue for bicycle lanes within the park.
CONCLUSION
The ' applicant's written statements and supporting materials (graphic illustrations, attached
excerpts of applicable City codes and plan language, and the Traffic Impact Study), demonstrate
that.the subject proposal to amend the Metro plan diagram for 6.2 acres of existing Heavy
Industrial designated land, to Commercial, is consistent with the applicable decision criteria.
Specifically, it is consistent with Statewide Planning Goals 9, 12, and others which are
applicable, and would not make the Metro Plan internally inconsistent. In fact, the proposal
would make the diagram more consistent with the document by supporting enhanced
oppgrtunities for commercial development and by removing unneeded industrial land from the
City's land base inventory. Moreover, this application demonstrates, based on adopted City
policies, that the proposed action and associated future zone change requests associated with the
holistic master plan for this site constitute the most appropriate plan in terms of compatibility
with the surrounding neighborhood; marketability; and meeting needs for industrial and
commercial lands through the coming planning period.
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