HomeMy WebLinkAboutMiscellaneous PLANNER 8/31/2005
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EUGENE-SPRINGFIELD METROPOLITAN PLAN DIAGRAM AMENDMENT
J.P. HAMMER INDUSTRIAL PARK
Owner:
Applicant's Representative:
Assessor's Map:
Current Metro Plan Designations:
Proposed Metro Plan Designations:
Current Refinement Plan Designation:
Proposed Refinement Plan Designation:
Current Zoning:
John Hammer
PO Box 2266
Eugene, OR 97402
Tel, 541683-1166
Creed A. Eckert, AICP
Olson & Morris
1410 Oak Street Suite 200
Eugene, OR 97401
Tel: 541-302-9790
17-02-32-22
Tax Lots 1400, 1500, 100 and 200
17-02-30-44
Tax Lots 500, 800
Heavy Industrial
Light-Medium Industrial with
Mixed Use Overlay,
Commercial
Heavy Industrial
Light/Medium Industrial,
Commercial
HI (Heavy Industrial)
Background
The above described subject property is located within the boundaries of the Eugene-
Springfield Metropolitan Plan and is designated Heavy Industrial on the Metro Plan's
General Diagram. The site is also subject to the Mid-Springfield Refinement Plan, and is
designated as Heavy Industrial on that document's diagram. This request is to amend the
Metro Plan's General Diagram for a number of smaller lots within the existing park, in
some cases from Heavy Industrial (HI) to Light-Medium Industrial, with a Mixed Use
Overlay, and in other cases from HI to Commercial.
JP Hammer Industrial Park Metro Plan Amendment
City of Springfield, Oregon
August, 2005 Page 2
Date ReceiVed: ~eOO~
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IP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 2
This would facilitate the applicant making, subsequent application for zone map amendment
affecting the subject portions of the site, from Heavy Industrial to Mixed Use Employment
(MUE) and Community Commercial (CC).
The specific lots within J.P. Hammer Industrial Park which are involved in this request include:
LOT
NUMBERS
AMEND PLAN FROM
TO
5-8
Heavy Industrial (HI)
Light-Medium Industrial (LMI)
wIMixed Use Overlay
9, 11-l3, 15, 16
Heavy Industrial (HI)
Commercial (C)
Section 7.110(4) of the Springfield Development Code (SDC) provides that an amendment to the
Metro Plan diagram automatically amends the pertinent Refinement Plan map. Provided no text
amendment(s) occur, it is not necessary in such instances to make application for refinement plan
map amendment.
In the event this plan amendment (and subsequent zone change request) is successful, the owner
has potential tenants interested in implementing a car sales facility on the lots fronting on 42nd
Street, subject to Special Use Permit approval under Section 18.020(2) ofthe Springfield
Development Code (SDC). This new commercial use would be located on Lots 11, 12, l3 and
15 on the attached drawing. The northwest comer of the site abuts Adams Plat, an existing
residential development immediately across 39th Street from the industrial park. This area,
.specifically described as Lots 5-8, is appropriate for de-intensification of uses and down zoning
in order to establish better compatibility with the residential character ofland uses west of39th
Street. Approval of this request to amend the Metro Plan for Lots 5-8, from HI to LMI with a
Mixed Use Overlay, would preclude from this area the heaviest impacting of industrial activities,
while ultimately maintaining flexibility to implement limited industrial uses among other
commercial types of activities by application of the Mixed Use Employment (MUE) Zone.
The current proposal would amend the Eugene Springfield Metro Plan General Diagram for
approximately 5.3 acres ofland in the IP Hammer Industrial Park to LMI/Mixed Use and
approximately 6.2 acres of land in the park to Commercial. The balance 41.3 acres of the
existing 52.8 acre industrial park are proposed to remain in their present Metro and Refinement
Plan designations. '
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JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 3
J.P. Hammer Industrial Park is located on the west side of 42nd Street between the Southern
Pacific Railroad tracks and Olympic Street, east of 39th Street. The site is just south of the 42nd
Street interchange with Interstate Freeway 105 (1-105). The park is bordered by Low Density
Residential (LDR) Zoning and land uses to the west (First Addition to Adam',s Plat), and vacant
and developed industrial zoned lands to the north, east, and south. Community Commercial
(CC) zoning occurs in the vicinity, located along the west side of 42nd Street, south of the
Southern Pacific Railroad tracks and E Street.
J.P. Hammer Industrial Park is subdivided into 16 lots and a common tract used for storm water
detention. The subdivision is supported by the January 2002, "Hammer Property Traffic Impact
Analysis" that was approved by the City of Springfield in conjunction with development plans
for the site. In support ofthe current Plan Diagram Amendment and the Zone Map Amendment
which is intended to follow it, Access Engineering has prepared the attached Traffic Impact
Study to identify on and off-site transportation improvements which may be warranted in
association with this change. These are advised in part to accommodate the anticipated change in
traffic impacts associated with converting some vacant "industrial" land to commercial zoning
and uses, though in most cases the applicant's proposed mitigation measures consist of prior-
programmed projects aligned with and identified in the metro area transportation system plan
(TransPlan). The City identified these as priority improvement projects prior to this application,
and they are officially recognized as needed even without the proposed plan amendment.
Decision Criteria
SDC Section 7.070(3) provides the criteria for approval of a plan amendment as follows:
"(3) CRITERIA FOR APPROVAL OF PLAN AMENDMENT. The following 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 of the 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:
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JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 4
GOAL I - 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.
GOAL 5 - OPEN SPACES, SCENIC AND,HISTORIC AREAS AND NATURAL RESOURCES
Upon a review ofthe Eugene I 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 affected by the proposal.
GOAL 6 - AIR, WA TER 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:
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JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 5
"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) Re-designation and re-zoning, from Heavy Industrial to Light-Mediwll Industrial with a
Mixed Use Overlay and to Mixed Use Employment Zoning, of about 5.3 acres of the subject
property;
B) Implementation of a car sales lot on the re-zoned parcels fronting on 42nd Street; and
C) Implementing LMI and / or commercial uses in the MUE Zone on lots fronting on 39th Street,
opposite the existing Adams Plat residential neighborhood.
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 oflots 5-8
from Heavy Industrial (HI) to Mixed Use Employment (MUE), a change which would decrease
the interface between heavy industrial-zoned lands in the existing park and adjacent residential
uses to the immediate west (Adams Plat, First Addition). Approval of this application and the
subsequent re-zoning requests would ultimately facilitate implementation ofthe applicant's
master plan vision for the site. This would result in the removal of 5.3 acres of current heavy
industrial zoning from an area adj acent to residentially zoned property to the west, replacing that
with lesser impacting industrial and / or commercial activities. 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 between industrial uses in tthis portion of the City
and the Adams Plat neighborhood.
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 generally be
seen to rise progressing from single family residential to commercial and through industrial types
of development.
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lP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 6
Residences typically only affect air quality through either wood burning stoves or automobile
trips associated with the 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 the increased carbon monoxide 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
"heavy" industrial land use types, adjacent to an established or planned neighborhood increases
the risk of adverse. impacts upon the existing residential uses. The downgrading of industrial
plan designation in this area, followed by creation of a new MUE Zone in this location of the
existing industrial park, would be consistent with the above discussed objective of Goal 6 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 heavy
industrial and residential lands and buffering these conflicting types of activities with intermittent
office and other lesser-impacting commercial and light-medium industrial uses.
GOAL 7 - AREAS SUBJECT TO NA TURAL DlSEASTERS 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 - 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. 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. In this case, industrial and commercial land needs analyses identified the
respective acreages of these lands needed to accommodate area growth projected through the
years 2010 and 2015, respectively.
Upon a review ofthe 2000 Springfield Commercial Lands Study, SCLS and portions of Eugene
Springfield Metro Area Industrial Lands Study (ILS), the following was discerned:
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IP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 7
. The ILS found a huge surplus of industrial-zoned land (between 2,432-2,954 acres
ofsurplus) 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 ofland 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.
. The SCLS indicates that the associated Citizen Advisory Committee (CAC) 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, of36 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.
. 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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lP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 8
. 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 of the proposed change upon traffic are discussed in the applicant's Traffic
Impact Study and under Goal 12, Transportation. Please see above discussions of
Statewide Planning Goal 6 for an analysis of the primary foreseeable impacts of this
proposal upon the adjacent residential neighborhood. No other significant constraints to
providing opportunities for commercial development and uses in the lP Hammer
Industrial Park have been identified or evaluated.
As stated previously, this proposal represents the first procedural step or component of a
larger master plan for this site involving re-zoning of just over six acres (Lots 9,11-13,
IS & 16) from Heavy Industrial to Community Commercial, which change requires prior
approval of a Metro Plan diagram amendment. An additional component of the
applicant's master plan involves re-designating Lots 5-8 from Heavy Industrial to Light-
Medium Industrial with a Mixed Use Overlay. Approval of this change would permit the
applicant to request a subsequent zone map amendment to Mixed Use Employment
(MUE).
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 particularly
supported 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 prior and subsequent discussions of this applicant's narrative for additional
details in this respect.
. 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. In addition, the lots
proposed for ultimate re-zoning to MUE are all about I and 1/3 acre in area. Since many
commercial types of uses are permitted in the MUE Zone, this change would result in
increasing the base acreage available to meet commercial land needs identified by the
SCLS in the Springfield UGB and city limits.
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JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 9
Approval of this request would work to increase the diversity of sizes of commercially-
zoned parcels 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.
. The parcels proposed for plan diagram amendment range in size from .38 acres to 1.68
acres. As such, they are more suited to a wide range of commercial uses than industrial
uses, many of which generally will require or prefer much larger lot areas.
This plan amendment is consistent with the applicable economic development and diversity
objectives of Goal 9. This proposal will provide much needed land for commercial and light-
medium industrial development in a jurisdiction that has identified a substantial and severe
deficit in their commercial lands inventory. The proposal will simultaneously balance the City's
land supply by removing from the inventory unneeded heavy 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 this site was excluded from the inventory as either significantly
constrained or developed based on the log ponds which were present here, and was never
anticipated to accommodate future industrial growth.
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IP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 10
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 many 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) 660-012. Specifically:
Conformance of any development on the site with the specific requirements of OAR 660-012-
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.
"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 identified function, 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
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City of Springfield
August 2005 Page II
(c) As measured at the end of the planning period identified in the adopted transportation system
plan:
(A) Allow land uses or levels of development that would result in types or levels of travel or
access that are inconsistent with the functional classification of an existing or planned
transportation facility;
(B) Reduce the performance of an existing or planned transportation facility below the minimum
acceptable performance standard identified in the TSP or comprehensive plan; or
(C) Worsen the performance of an existing or planned transportation facility that is otherwise
projected to perform below the minimum acceptable performance standard identified in the TSP
or comprehensive plan.
Access Engineering has prepared a detailed Traffic Impact Study (TIS) in support ofthis
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 th~se.
This proposal would not result in the types or degrees of impacts described in OAR 660-012-
0060(l)(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.
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 ofthe analysis show that all study area intersections will operate
within the mobility standards ofODOT and the City of Springfield through 2020.
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City of Springfield
August ZOOS Page IZ
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 4Znd Street.
The mitigation plan would be required under the current plan and zoning, and would not
require widening of 4Znd Street beyond what is planned in TransPlan. The mitigation plan
includes:
. 4Znd Street from Z50 feet south of Olympic Street the E-S Hwy. WB
Ramps - Utilizing the programined 3-lane section, change the center-turn-Iane to a
northbound through lane and allow left-turns from this lane at Olympic Street and the E-S
Hwy. EB Ramps intersections.
. 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.
. At 4Znd and the E-S Hwy. EB Ramps - Provide an overlap phase on the
existing single right-turn lane.
. At 4Znd and Olympic - Change the striping on the eastbound approach to a
left-turn lane and a left+right-turn lane.
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At 4Znd 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."
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 (I) 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 pelformance standards of the transportation facility.
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City of Springfield
August 2005 Page 13
(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 (I ),
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 section! (1) and (2) of this rule, a/ocal 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:
(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 set forth 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;
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City of Springfield
August 2005 Page 14
(c) Development resultingfi'om 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 of transportation
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 ih 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 thismle, so this subsection is not applitable.
(4) Determinations under sections (i)-(3) of this rule shall be coordinaiedwith 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
transportationfacilities, improvements and services set forth in subsections (b) and (c)
below.
(b) Outside of interstate interchange areas, the following are considered planned
facilities, improvements and services:
(A) Transportation facilities, improvements or services that are fundedfor 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.
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City of Springfield
August 2005 Page 15
(B) Transportationfacilities, improvements or services that are authorized in a local
transportation system plan and fO/: which a funding 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's federally-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 when ODOT
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 proposedfunding and timing of
mitigation measures are sufficient to avoid a significant adverse impact on the Interstate
Highway system, then local govern,ments 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 (I )( c) ofthis
rule, There is no adopted interchange area management plan in effect for this area,
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City of Springfield
August 2005 Page 16
(5) The presence of a transportation facility or improvement shall not be a basis for 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
transportation facilities as provided in 0060(1) and (2), local governments shall give full credit
for potential reduction in vehicle trips for uses located in mixed-use, pedestrian-friendly centers,
and neighborhoods as provided in (a)-(d) below;
(a) Absent adopted local standards or detailed information about the vehicle trip reduction
ben~fits 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, storage facilities, 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 information 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);
(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 accomplished 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
.
.
IP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 17
(d) The purpose of this section is to provide an incentive/or the designation and implementation
ofpedestrian~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. The Commission concludes that
this assumption is warranted given general information about the expected effects 0/ mixed-use,
pedestrian~friendly development and its intent to encourage changes to plans and development
patterns. Nothing in this section is intended to affect the application of provisions in local plans
or ordinances which provide for the calculation or assessment of systems development charges
or in preparing conformity determinations required under the federal Clean Air Act.
Page 10 of the applicant's TIS begins with the following sentence: "Even though the proposed
plan amendments and zone change would result in a mixed-use development site, no adjustments
are made for 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) of this
division: '
(a) The plan or land use regulation amendment results in designation o/two or more
acres of land/or 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 Metro's
requirement/or street connectivity as contained in Title 6, Section 3 0/ the Urban Growth
Management Functional Plan; and
(c) The proposed amendment would significantly affect a transportation facility as
provided in 0060(1).
.
.
lP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 18
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.
{]OAL 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 - BEACHES AND DUNES
This Goal is not applicable to this application.
GOAL 19 - OCEAN RESOURCES
This Goal is not applicable to this application.
.
.
lP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 19
"(b) Adoption of the amendment must not make the Metro Plan internally inconsistent. "
This section of the applicant's narrative discusses the applicable provisions ofthe Eugene /
Springfield Metro Area General Plan, and is followed by a discussion of the 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 ofthe area's economic activities and base. This metro plan amendment and zone
change 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. This change would bring more
economic diversification, a compatible and efficient mix ofland 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 ofland 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 / 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.
.
.
JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 20
ECONOMIC FINDINGS
Finding Number I of Section II-B reads:
"1. The structure of the Eugene-Springfield metropolitan area economy is undergoing a shifi
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 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 (lLS) 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 demancf' (SeLS, 23). Further, City planning staff have indicated that the subject
property was not counted as part ofthe 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 o.fSpringfield'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 heavy
industrial zoning eleven and a half (11 12) acres of land consisting of ten narrowly-configured,
small parcels with commercial~appropriate frontage on 42nd Street and Kathryn / 40th Street.
Industrial Finding 4 of the 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 5-8, 9, 11-13, IS & 16 ofthe JP Hammer Industrial Park, which
parcels are the subject oftrus plan amendment request. 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 Lancf', item I, which reads: "Recognize the predominance of commercial strip
development along Main Street and North 42nd by designating these areas for commercial use."
.
.
JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 21
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; because frontage on 42nd Street is considered to
be an appropriate and desirable location for providing commercial services and uses; and because
heavy industrial uses are not considered appropriate adjacent to residential 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 light to medium 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 39th Street. As stated, 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 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
lO's future, heavy industrial activities and the existing neighborhood to the west. Please refer to
the attached Plan Amendment diagram for a graphic illustration of this proposed protective
measure for the existing residences west of 39th 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. 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 proposed change.
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."
.
.
JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 22
Although about 6.2 acres would be removed from a Metro Plan industrial designation, 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 was severely constrained to development by virtue of being
covered in standing water at the time of the ILS' writing.
Policy 16 states: "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."
The plan diagram changes proposed herein are part of a larger, holistic master planning concept
for the industrial park which would retain the largest existing heavy industrial parcels in their
current zoning while potentially consolidating uses among ten smaller lots currently zoned Heavy
Industrial but ultimately proposed for commercial and mixed use 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 II1-E, Environmental Design Element, includes an objective that states that the
Community Commercial zone is appropriate next to medium 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 ofthe industrial park than
with the current plan of heavy 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:
"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. "
.
.
lP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 23
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:
"F15 Motor vehicle level of service policy:
1. Use motor vehicle level of service standards to maintain acceptable and reliable performance
on the roadway system. These standards shall be used for:
(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 applicationsfor 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 trafjic 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 queuing 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 42nd Street and Eugene Springfield Highway westbound (E-S Hwy.
WB) ramps, which operates at LOS F; northbound left turns on 42nd Street @ Marcola Road
which operate at LOS E; and eastbound left turns at 42nd Street and Industrial Avenue, LOS F.
.
.
lP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 24
The tables on pages 12 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 of these existing conditions relative to the LOS of the
transportation facilities in the area.
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.
F.23 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".
.
.
lP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 25
This proposal would work to remove the interface offour existing heavy industria] 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 HI to MUE and CC. 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 ofien too
small to accommodate the needs of new industrial development." This applies in particular to
existing Lots 5-8, 9, ] ]-13, 15 & 16 of the lP Hammer Industrial Park, which parcels are the
subject of this plan amendment request. All ofthe 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 Land" 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 Land', immediately following the refinement
plan's Commercial Policies, includes item ], 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
commercial 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 way adequate width on 40th Street I Industrial A venue for bicycle lanes within the park.
.
.
JP Hammer Metro Plan Amendment
City of Springfield
August 2005 Page 26
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 11.5 acres of existing Heavy
Industrial designated land to Light-Medium Industrial with a Mixed Use Overlay and
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 opportunities for commercial development and by
removing unneeded heavy industrial land from the City's land base inventory.
Moreover, this application demonstrates, based on adopted City policies and written testimony in
favor of the application, 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.
The applicant respectfully requests the City approve this Metro Plan Amendment.
User Name: WadeUser .
.,
project: 3286 Construction Staking
Re'l\lo'rt Nodes
Oate: 08-17-05
Time: 09:49:37
Page: 1
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Report Nodes
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Node 10 Northing Easting Elevation Oescription
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