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Ordinance No. 6463
CITY OF SPRINGFIELD, OREGON ORDINANCE NO. 6463 (GENERAL) AMENDING THE EUGENE-SPRINGFIELD METROPOLITAN AREA GENERAL PLAN (METRO PLAN) AND SPRINGFIELD COMPREHENSIVE PLAN TO ADOPT THE SPRINGFIELD COMPREHENSIVE PLAN MAP AND LAND USE ELEMENT; AMENDING THE DOWNTOWN REFINEMENT PLAN, GATEWAY REFINEMENT PLAN, GLENWOOD REFINEMENT PLAN, EAST KELLY BUTTE REFINEMENT PLAN, EAST MAIN REFINEMENT PLAN, MID-SPRINGFIELD REFINEMENT PLAN, AND Q STREET REFINEMENT PLAN; AMENDING THE SPRINGFIELD DEVELOPMENT CODE; ADOPTING A SAVINGS CLAUSE AND SEVERABILITY CLAUSE; AND PROVIDING AN EFFECTIVE DATE WHEREAS, in 1986, the City of Springfield, Lane County, and City of Eugene jointly adopted the Eugene-Springfield Metropolitan Area General Plan ("Metro Plan") diagram as a generalized map depicting land use designations applicable within the Metro Plan boundary and as a graphical depiction of the broad goals, objectives, and policies of the Metro Plan; WHEREAS, in 2007, the Oregon Legislature adopted ORS 197.304 requiring the City of Springfield and City of Eugene to each establish an independent urban growth boundary (UGB) and demonstrate that each cities'comprehensive plan provides sufficient buildable lands within its UGB to accommodate needed housing under Oregon statute; WHEREAS, the City of Springfield and Lane County adopted a separate Springfield UGB and adopted the Residential Land Use and Housing Element as the first element of the Springfield Comprehensive Plan (Springfield Ordinance 6268, adopted June 20, 2011; Lane County Ordinance PA-096018, adopted July 6, 2011); WHEREAS, the City of Springfield and Lane County amended the Metro Plan diagram to reflect a Metro Plan Boundary that is coterminous with the Springfield UGB east of Interstate 5 (Springfield Ordinance 6288, adopted March 18, 2013; Lane County Ordinance PA-1281, adopted June 4, 2013); WHEREAS, the City of Springfield, Lane County and the City of Eugene adopted amendments to the Metro Plan that allow each city to determine the extent to which particular sections in the Metro Plan will apply within the individual city's UGB through future amendments to the Metro Plan(Springfield Ordinance 6332, adopted December 1, 2014, Lane County Ordinance PA 1313, adopted November 12, 2014; Eugene Ordinance 20545, adopted November 25, 2014); WHEREAS, the City of Springfield and Lane County adopted amendments to the Springfield UGB to accommodate needed employment lands and adopted the Springfield Comprehensive Plan Economic Element and Urbanization Element (Springfield Ordinance 6361, adopted December 5, 2016; Lane County Ordinance PA-1304, adopted December 6, 2016); WHEREAS, the City of Springfield has adopted area-specific refinement plans that supplement the Metro Plan policies for a specific geographical area, including property-specific refinement plan maps that amend the Metro Plan diagram, including the Gateway Refinement Plan, Glenwood Refinement Plan, East Main Refinement Plan, Mid-Springfield Refinement Plan, Q Street Refinement Plan, East Kelly Butte Refinement Plan, and Downtown Refinement Plan; {00030177:1} WHEREAS, in November 2021, the City of Springfield received a technical assistance grant from the Oregon Department of Land Conservation and Development to enable the City of Springfield to prepare and adopt a Springfield Comprehensive Plan Map that provides comprehensive plan designations at the property-specific level within the Springfield UGB, to serve as the basis for future Springfield housing capacity analysis; WHEREAS, the City of Springfield initiated a Type II Metro Plan amendment pursuant to Metro Plan Chapter IV and Springfield Development Code 5.14.115.B.2, to amend the Metro Plan and Springfield Comprehensive Plan to adopt the Springfield Comprehensive Plan Map as a replacement of the Metro Plan diagram within the Springfield UGB, and to adopt the Springfield Comprehensive Plan Land Use Element; WHEREAS, the City of Springfield is concurrently adopting amendments to six neighborhood area refinement plans and the Springfield Development Code to implement the Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map; WHEREAS, in accordance with the Community Engagement Plan endorsed by the Springfield Committee for Citizen Involvement, the City of Springfield has provided opportunities for public engagement including but not limited to a Project Advisory Committee, a Technical Advisory Group, specific outreach to owners of property with ambiguous or uncertain plan designations, and online and in-person open houses including project information in both English and Spanish; WHEREAS, on July 18, 2023, the Springfield and Lane County planning commissions conducted a properly noticed joint public hearing on the proposed amendments and approved a recommendation to the Springfield City Council and Lane County Board of Commissioners to adopt the proposed amendments; WHEREAS, on October 16, 2023, the Springfield City Council and Lane County Board of Commissioners conducted a properly noticed joint public hearing, and is now ready to take action based upon the above planning commission recommendations and evidence and testimony in the record and presented at the public hearing; and WHEREAS, substantial evidence exists within the record demonstrating that the proposed amendments meet the requirements of the Metro Plan, Springfield Development Code, Lane Code, and other applicable state and local law as described in the Staff Report and Findings attached as Exhibit G, which are adopted in support of this Ordinance, NOW, THEREFORE, THE COMMON COUNCIL OF THE CITY OF SPRINGFIELD ORDAINS AS FOLLOWS: Section 1. The Springfield Comprehensive Plan is amended to adopt the Springfield Comprehensive Plan Map, Springfield Comprehensive Plan Land Use Element, and conforming text amendments, as provided in Exhibits A-1, A-2, and A-3, attached hereto and incorporated by this reference. Section 2. The following refinement plan diagrams are amended as depicted in Exhibit A-1: Downtown Refinement Plan, East Kelly Butte Refinement Plan, East Main Refinement Plan, Gateway Refinement Plan, Glenwood Refinement Plan, Mid-Springfield Refinement Plan, and Q Street Refinement Plan. {00030177:1} Ordinance No. 6463 Section 3. The Metro Plan is amended as provided in Exhibit B, attached hereto and incorporated by this reference, to (1) adopt text reflecting that Metro Plan Chapter II-G (Metro Plan Diagram) no longer applies within the Springfield UGB and is replaced by the Springfield Comprehensive Plan Land Use Element, and (2) adopt text reflecting that the plan designations depicted on the Metro Plan diagram no longer apply within the Springfield UGB and are replaced by the designations depicted on the Springfield Comprehensive Plan Map. Section 4. The Gateway Refinement Plan text and Glenwood Refinement Plan text are amended as provided in Exhibit C, attached hereto and incorporated by this reference, for consistency with the Springfield Comprehensive Plan Map and Land Use Element. Section 5. The East Main Refinement Plan text, Mid-Springfield Refinement Plan text, and Q Street Refinement Plan text are amended as provided in Exhibit D, attached hereto and incorporated by this reference, for consistency with the Springfield Comprehensive Plan Map and Land Use Element. Section 6. The Downtown Refinement Plan text is amended as provided in Exhibit E, attached hereto and incorporated by this reference, for consistency with the Springfield Comprehensive Plan Map and Land Use Element and to correct textual errors in said plan. Section 7. The Springfield Development Code is amended as provided in Exhibit F, attached hereto and incorporated by this reference, to implement the Springfield Comprehensive Plan Map and Land Use Element. Section 8. Savings Clause. (a) Except as specifically amended herein, the Metro Plan, Springfield Comprehensive Plan, Springfield area refinement plans, and the Springfield Development Code will continue in full force and effect. (b) During the period following the adoption of this Ordinance and before the effective date provided in section 10, any lawfully adopted amendment to the Metro Plan diagram or an area refinement plan map shall automatically relate back to the Springfield Comprehensive Plan Map adopted in section 1 of this Ordinance, and to any applicable area refinement plan map adopted in section 2 of this Ordinance. The purpose of this provision is to prevent this ordinance from effectively repealing any Metro Plan diagram amendment or area refinement plan map amendment that is lawfully adopted following approval and adoption of this Ordinance, but prior to its effective date. Section 9. Severability Clause. If any section, subsection, sentence, clause, phrase or portion of this Ordinance is, for any reason, held invalid or unconstitutional by a court of competent jurisdiction, such portion shall be deemed a separate, distinct and independent provision and such holding shall not affect the validity of the remaining portion hereof. [Ordinance continued on following page] {00030177:1} Ordinance No. 6463 Section 10. Effective date of Ordinance. The effective date of this Ordinance is March 1, 2024; or upon the date that an ordinance is enacted by the Lane County Board of Commissioners approving the same amendments as provided in sections 1 through 4 and 7 of this Ordinance; or upon acknowledgment under ORS 197.625; whichever occurs last. ADOPTED by the Common Council of the City of Springfield this 20 day of November . 2023 by a vote of 5 for and 0 against. (1 Absent- Blackwell) APPROVED by the Mayor of the City of Springfield this 20th day of November 2023 Mayor ATTEST: REVIEWED&APPROVED AS TO FORM Y,r6W+1.GL KY DATE: 111201 City Recorder SPRINGFIELD CITY ATTORNEY'S OFFICE {00030177:1} Ordinance No. 6463 Exhibit A, Page 1 of 53 Exhibit A Springfield Comprehensive Plan Amendments A-1 Adopt a Springfield Comprehensive Plan Map as shown in Exhibit A-1. A-2 Adopt a Land Use Element as shown in Exhibit A-2. A-3 Amend additional text for consistency with adoption of a Springfield Comprehensive Plan Map and Land Use Element as summarized below and shown in track changes in Exhibit A-3. The amendments to the Springfield Comprehensive Plan's Residential Land Use & Housing Element and Urbanization Element are more substantive and are shown in track changes in Exhibit A-3. The following amendments to the Springfield Comprehensive Plan are not shown in track changes based on the limited nature of the amendments, which include: • Replace references to "Metro Plan Diagram" or"2030 Plan Diagram" with "Springfield Comprehensive Plan Map" in the Economic Element on pages 2, 11, and 27 of the Springfield Comprehensive Plan. • For consistency with Springfield Development Code, replace references to "Zoning Districts" with "Land Use District". Ordinance No. 6463 Exhibit A, Page 2 of 53 Exhibit A- 1 Springfield Comprehensive Plan Map Ordinance No. 6463 - m E Q co ' 1 N I I y o , sX"/..0 pN N y ` ♦I� c m m co ' 12 a m z o 0 g h pp a � ¢ v m E m 'h 1 OF � . 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Pork J t v rnm meters QW i^ Jmper A3en1o111 40 1L. wMi c T�URSTO� a AaaA E ♦, Quart Pork June�`- 00 $2023 00 !-7 Urban Growth > 16 J Boundary ORefinement Plan Boundary` Plan Designations , Low Density Residential Medium Density Residential IL High Density Residential -Community Commercial Light Medium Industrial iP , Special Heavy Industrial Public Land and Open Space p,'^ �? `Refer to the applicable Refinement v, Plan diagram to see the proposed plan , designations for Refinement Plan Areas. wp, SPRINGFIELD o vs 1/4 vz Mi. - There are no wananfiet foamy low orYaMaproduct users �O sure ell responsity for any loss or damage addle from OREGON any error,omiaamn,orvoamonal rnaeeurauy oftms vrodun 'A Ordinance No.6463 '�HyOmr•+�L 1? z . a4o Q `o,Jl s'1eo m K a Z o < o r E 0 s 1 r7 8aa %a` W IS IS INI -01 4NOs " U j W 2 LLS u _ 3 .s .s s 2 Z a T z i o CL v ' 77 s E IS I. 1 „„ennnry �g N- m IS IS— r o o sa w 0 = s o IS asls IS IS o a o =eap o IS m ♦ ve .s LLE dLLJ1111LLLL11 ui—j—NZ jj I— IS w TO; m , r o. s .. a aanH� W N c E E -o O 11w, ry n e — a C N D d E O lY p\ONEEN A U E rvCi - �. y W 2 na norv.w 3 pi o E o E U y{y�y}1 J = a mpy W \ W C ;� W Exhibit A Page 17 of 53 East-Central Springfield Vicinity N 0xbo. ePuElktk, 1 1 O � 2p23� 1 126oft • — � —� 1 r-7 Urban Growth 126 a.J Boundary Refinement Plan Boundary` --:;Willamette Greenway &--+overlay 'CLICK HERE Plan Designations TO VIEW THE MID- SPRINGFIELD REFINEMENT Low Density Residential PLAN DIAGRAM Medium Density Residential IL High Density Residential 'CLICK HERETO -Community Commercial VIEW THE EAST MAIN -Light Medium Industrial REFINEMENTPLAN DIAGRAM -Heavy Industrial •,' Sand&Gravel Public Land and Open Space 'Refer to the applicable Refinement Plan diagram to sea the proposed plan designations for Refinement Plan Areas. ins x �� Iblurilef o�n s, { ow�i oa Iwn P,1, 00 r ~x v xvol+ sr C LE � n „ � 1 1 1 1 1 1 i�f7�� ♦� aft • � e ♦ � L - 0 0 " � o ..... IT ' — 41110— 00, SPRINGf� o ve va tlz Mi. mere no Werrennes the(eccompany tbis product.use me all responsibility for any loss or damage ansiM OREGON any mror,omission,or positional inaccuracy of Mis protluct � `1 Iw � � 1-- - ar�� i�----•� '� .sue ♦ r . ♦ 1 LL pa,k ♦ — ..1A0 Ordinance No.6463 Exhibit A, Page 18 of 53 Exhibit A-2 — Land Use Element of Springfield Comprehensive Plan OVERVIEW The Springfield Comprehensive Plan is currently being developed as Springfield's new land use comprehensive plan policy document applicable to Springfield's jurisdictional area of the Eugene-Springfield Metropolitan Area General Plan (Metro Plan) Plan. The purpose of this Land Use Element is to inform long range land use planning and guide future development in Springfield by describing how and where land will be developed to meet long term growth needs while maintaining and improving community livability. The land use policy direction established through adoption of the Land Use Element is focused on establishing a property-specific Springfield Comprehensive Plan Map with plan designation descriptions and related policies to support the map. The goal is to enable informed local decision-making by providing a solid visual understanding of existing plans and policies related to how land can be used within the Springfield Urban Growth Boundary(UGB). The policies and implementation strategies are the City's agreements and commitments to support the Springfield Comprehensive Plan Map, such as where and how flexibility is allowed and how the map can be maintained. Statewide Planning Goal 2. Land Use Planning — To establish a land use planning process and policy framework as a basis for all decision and actions related to use of land and to assure an adequate factual base for such decisions and actions. RELATIONSHIP TO THE METRO PLAN, FUNCTIONAL PLANS & REFINEMENT PLANS The Springfield Comprehensive Plan Land Use Element was adopted by the City of Springfield and Lane County as a city-specific comprehensive plan policy element to independently address a planning responsibility that was previously addressed on a regional basis in the Metro Plan.1 The Land Use Element goals, policies and implementation strategies replace the more general Metro Area-wide goals, findings and policies contained in Metro Plan sections entitled "Metro Plan Diagram" (Metro Plan II-G) for lands within the Springfield UGB. The Metro Plan establishes a broad regional framework for Eugene, Springfield, and Lane County to coordinate comprehensive planning within the Eugene-Springfield Metropolitan planning area. Metro Plan Chapter I explains the relationship between city-specific comprehensive plans, the broad policy framework of the Metro Plan and the regionally coordinated functional plans. The Springfield Comprehensive Plan elements — including this Land Use Element—explicitly supplant the relevant portion of the Metro Plan. 1 Metro Plan pp. iii-iv and Chapter II describes the incremental Metro planning area shift towards separate Springfield and Eugene UGBs and city-specific comprehensive plans. Ordinance No. 6463 Exhibit A, Page 19 of 53 Neighborhood refinement plans provide additional guidance for implementingthe Land Use Element by establishing specific refinement plan policies and plan designations to achieve Springfield's land use objectives. Some Neighborhood Refinement Plans were created decades ago and have not been fully updated to incorporate changes made through adoption of more recent plans. For example, adoption of Springfield's Transportation System Plan resulted in changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement Plans. In such cases,the more recently adopted plan generally prevails. Neighborhood Refinement Plans often have more specific policies than those in the Comprehensive Plan due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specifc or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive Plan.2 The Springfield Comprehensive Plan Map portrays the community's vision for future growth, development, and redevelopment. The Land Use Element provides policy direction for updating and amending refinement plans, zoning, and development regulations in conformance with this vision. The City must continue to analyze the suitability and capacity of the existing plan designations (also referred to as designations in this element) in terms of location, intensity and mix of uses, design, and infrastructure. Based on more detailed and specific levels of analysis, the City must amend the Springfield Comprehensive Plan and Comprehensive Plan Map as necessary to address changing local conditions and/or new State law. Implementation of this Land Use Element includes adoption of updates to land use refinement plans at the city-wide, district, corridor, and neighborhood scales; City-initiated rezoning; and through property owner- initiated plan amendment or zoning proposals. SPRINGFIELD COMPREHENSIVE PLAN MAP The Springfield Comprehensive Plan Map establishes property-specific plan designations within the Springfield UGB. The map identifies the geographic locations and describes the physical characteristics of plan designations, reflecting influences from sources including: 1. The Land Conservation and Development Commission's (LCDC) Statewide Planning Goals, as published in April 1977 and subsequently amended. 2. The Metro Plan, most recently published in 2019, and the Metro Plan Diagram, most recently adopted in 2004 and subsequently amended.The Metro Plan Diagram is a graphic depiction of: (a) the broad allocation of projected land use needs; and (b) goals, objectives, and policies embodied in the text of the Metro Plan. The Metro Plan has long called for the continued evolution to a property-specific diagram. 3. Adopted neighborhood refinement plans -The Springfield Comprehensive Plan Map shows the specific neighborhood refinement plan designations for refinement plan 2 During the period of transition from Metro Plan to local comprehensive plans,Springfield's"comprehensive plan"consists of the acknowledged Metro Plan and the acknowledged Elements of the Springfield Comprehensive Plan. 21Land Use Element Ordinance No. 6463 Exhibit A, Page 20 of 53 areas. Refer to the associated refinement plan for related policies and descriptions for refinement plan designations, such as the multiple variations of mixed use. 4. Adopted special purpose and functional plans. SPRINGFIELD URBAN GROWTH BOUNDARY The location of the Springfield UGB is graphically depicted in the Springfield Urban Growth Boundary Map and further described in the table entitled "List of tax lots which are adjacent to and inside, or split by the UGB" and the document entitled "Summary of Methodology Utilized to Refine the Location of the Springfield Urban Growth Boundary." The table and methodology document were added to the Metro Plan in 2011 as part of the adoption of the City of Springfield's city-specific UGB (through Springfield Ordinance No. 6268 and Lane County Ordinance No. PA 1274 in 2011); and revised as part of the adoption of the UGB amendment in 2016 (through Springfield Ordinance No. 6361 and Lane County Ordinance No. PA 1304, Exhibit C-2). In 2013, the Metro Plan Boundary on the east side of 1-5 was made coterminous with the Springfield UGB.3 PLAN DESIGNATIONS Plan designations shown on the Springfield Comprehensive Plan Map are depicted at a property- specific scale. The following section includes descriptions for base plan designations as well as overlays that work in conjunction with the underlying base plan designation. Base plan designations apply to each property within the Springfield UGB while overlays apply to a broader area including public right-of-way. The overlays shown on the Springfield Comprehensive Plan Map include Nodal Development Areas, Mixed Use Areas, and the Willamette Greenway. Overlays apply to a broader area in order to implement regulations such as environmental and recreational considerations related to the Willamette Greenway or considerations for coordinated land use and transportation improvements related to Nodal Development Areas. Used with the text from this Land Use Element and local plans and policies, the mapped plan designations provide direction for decisions pertaining to appropriate land use and development, reuse (redevelopment), and urbanization of property outside the city limits. Should inconsistencies occur between the Springfield Comprehensive Plan Map and written text in local plans and policies, the Springfield Comprehensive Plan Map prevails. Statements in this section that prescribe specific courses of action regardingthe community's future should be regarded as policies. There are some instances where the boundaries of plan designations are flexible, as noted in Policy LU.1 in this element, such as properties in the Jasper-Natron area as well as properties with or near Public Land and Open Space designations that generally follow natural features, such as waterways (e.g., the Mill Race, Island Park Slough). Refer to Policy LU.1 in this element 3 Springfield Ord. 6288, Eugene Ord. 20511, and Lane County Ord. PA 1281 31Land Use Element Ordinance No. 6463 Exhibit A, Page 21 of 53 for more information about where flexibility is allowed and what criteria are used to establish the exact location of plan designation boundaries in these instances. Residential This category is expressed in gross acre density ranges. Using gross acres, approximately 32 percent of the area is available for auxiliary uses, such as streets, elementary and middle schools, neighborhood parks, other public facilities, neighborhood commercial services, and place of worship not actually shown on the Comprehensive Plan Map. Such auxiliary uses are allowed within residential designations if compatible with refinement plans and the Springfield Development Code. The division into low, medium, and high densities is consistentwith that depicted on the Comprehensive Plan Map. In other words: • Low density residential—Through 10 units per gross acre • Medium density residential—Over 10 through 20 units per gross acre • High density residential—Over 20 units per gross acre These ranges do not prescribe particular structure types, such as single unit detached dwelling, duplex, triplex, fourplex,townhome, cottage cluster, manufactured dwelling, or multiple unit housing.That distinction, if necessary, is left to the Springfield Development Code. In conformance with state law, these density ranges do not apply to middle housing types, such as duplexes,triplexes, fourplexes, cottage cluster housing, and townhomes.4 While all medium and high density allocations shown on the Comprehensive Plan Map may not be needed during the planning period,their protection for these uses is important because available sites meeting pertinent location standards are limited. Commercial Major Retail Centers Such centers normally have at least 25 retail stores, one or more of which is a major anchor store, having at least 100,000 square feet of total floor space.They sometimes also include complimentary uses, such as general offices and medium and high density housing. 4 For purposes of housing development,ORS 197.758, ORS 92.031,and ORS 197.308, override comprehensive plan provisions.ORS 197.758(adopted by House Bill 2001 in 2019)compels the City to amend its development code to conform to state law for middle housing.ORS 92.031(adopted by House Bill 458)compels the City to approve land divisions for said middle housing. ORS 197.308 (adopted by Senate Bill 8 in 2021)compels the City to apply density and height bonuses to development of affordable housing as defined in that statute.Thus,the code provisions adopted by Ordinance 6443 demanded by statute,override any conflicting comprehensive plan policy or provision. 41Land Use Element Ordinance No. 6463 Exhibit A, Page 22 of 53 Community Commercial Centers This category includes more commercial activities than neighborhood commercial but less than major retail centers. Such areas usually develop around a small anchor retail store. The development occupies at least five acres and normally not more than 40 acres. This category contains such general activities as retail stores; personal services; financial, insurance, and real estate offices; private recreational facilities, such as movie theaters; and hospitality-related facilities, such as hotels. When this category is shown next to medium or high density residential, the two can be integrated into a single overall complex, local regulations permitting. Neighborhood Commercial Facilities This designation was not shown on the Metro Plan Diagram as these land uses were not individually of metropolitan-wide significance in terms of size or location because of their special nature or limited extent. However, this designation is shown on the Gateway and Q Street neighborhood refinement plan diagrams and is shown on the Comprehensive Plan Map accordingly. Neighborhood Commercial facilities are not limited to these neighborhood refinement plan areas, but may be allowed elsewhere accordingto the policies stated below. Oriented to the day-to-day needs of the neighborhood served,these facilities are usually centered on a supermarket as the principal tenant. They are also characterized by convenience goods outlets (small grocery, variety, and hardware stores); personal services (medical and dental offices, barber shops); laundromats; and taverns and small restaurants. The determination of the appropriateness of specific sites and uses is based on the following location standards and site criteria: 1. Within convenient walking or bicycling distance of an adequate support population. For a full-service neighborhood commercial center at the high end of the size criteria, an adequate support population would be about 4,000 persons (existing or anticipated) within an area conveniently accessible to the site. For smaller sites or more limited services, a smaller support population or service area may be sufficient. 2. Adequate area to accommodate parking and loading needs and landscaping, particularly between the center and adjacent residential property, as well as along street frontages next door to outdoor parking areas. 3. Sufficient frontage to ensure safe and efficient automobile, pedestrian and bicycle access without conflict with moving traffic at intersections and along adjacent streets. 4. The site must be no more than five acres, including existing commercial development. The exact size depends on the numbers of establishments associated with the center and the population to be served. Neighborhood commercial facilities may include community commercial centers when the latter meets applicable location and site criteria as listed above, even though community commercial centers are generally larger than five acres in size. 51Land Use Element Ordinance No. 6463 Exhibit A, Page 23 of 53 In certain circumstances, convenience grocery stores or similar retail operations play an important role in providing services to existing neighborhoods. These types of operations which currently exist can be recognized and allowed to continue through such actions as rezoning. Mixed Uses This category represents areas where more than one use might be appropriate, usually as determined by refinement plans. Mixed Use is a base plan designation in refinement plan areas, except for the Multimodal Mixed Use Area in Glenwood, which is an overlay that works in conjunction with the base plan designations. For areas outside of refinement plans, Mixed Use is an overlay designation. There are multiple variations of Mixed Use designations shown on the Comprehensive Plan Map; however, the related plan designation descriptions and policies can be found in the applicable neighborhood refinement plan. In the absence of a neighborhood refinement plan,the underlying plan designation determines the predominant land use. Industrial Heavy Industrial This designation generally accommodates industries that process large volumes of raw materials into refined products and/or that have significant external impacts. Examples of heavy industry include: lumber and wood products manufacturing; paper, chemicals and primary metal manufacturing; large-scale storage of hazardous materials; power plants; and railroad yards. Such industries often are energy-intensive and resource-intensive. Heavy industrial transportation needs often include truck and rail. This designation may also accommodate light and medium industrial uses and supporting offices. Light Medium Industrial This designation accommodates a variety of industries, including those involved in the secondary processing of materials into components, the assembly of components into finished products, transportation, communication and utilities, wholesaling, and warehousing. The external impact from these uses is generally less than Heavy Industrial, and transportation needs are often met by truck. Activities are generally located indoors, although there may be some outdoor storage. This designation may also accommodate supporting offices and light industrial uses. 61Land Use Element Ordinance No. 6463 Exhibit A, Page 24 of 53 Campus Industrial The primary objective of this designation is to provide opportunities for diversification of the local economy through siting of light industrial firms in a campus-like setting. The activities (e.g, manufacturing, storage of materials) of such firms must be obscured from public view and have external impacts less than or equal to office uses, such as noise, pollution, and vibration. Large- scale light industrial uses, including regional distribution centers and research and development complexes, are the primary focus of this designation. Provision should also be made for small and medium scale industrial uses within the context of industrial and business parks which will maintain the campus-like setting with minimal environmental impacts. Complementary uses such as corporate office headquarters and supporting commercial establishments serving primary uses may also be sited on a limited basis. Conceptual development planning, performance standards, or site review processes must be applied to ensure adequate circulation, functional coordination among uses on each site, a high quality environmental setting, and compatibility with adjacent areas. A 50-acre minimum lot size shall be applied to ownerships of 50 or more acres to protect undeveloped sites from piecemeal development until a site development plan has been approved. Special Heavy Industrial These areas are designated to accommodate relocation of existing heavy industrial uses inside the Springfield UGB that do not have sufficient room for expansion and to accommodate a limited range of other heavy industries in order to broaden the manufacturing base of the metropolitan economy and to take advantage of the natural resources of this region. These areas are also designated to accommodate new uses likely to benefit from local advantage for processing, preparing, and storing raw materials, such as timber, agriculture, aggregate, or by- products or waste products from other manufacturing processes. Land divisions in these areas must be controlled to protect large parcels (40-acre minimum parcel size). This designation accommodates industrial developments that need large parcels, particularly those with rail access. Although a primary purpose of this designation is to provide sites for heavy industries, any industry which meets the applicable siting criteria may make use of this designation. Public Land and Open Space This designation contains three categories: • Government uses (includes major office complexes and facilities/utilities) • Educational uses (includes secondary schools and post-secondary schools and career training) 71Land Use Element Ordinance No. 6463 Exhibit A, Page 25 of 53 • Parks and Open Space uses This designation includes publicly owned metropolitan and regional scale parks and publicly and privately owned golf courses and cemeteries in recognition of their role as visual open space. This designation also includes other privately owned lands in response to Metro Plan policies. Where public land and open space is designated on privately owned agricultural land, those lands must be protected for agricultural use in accordance with the applicable comprehensive plan policies. Where public land and open space is designated on forest lands inside the UGB, other values have primary importance over commercial forest values and those park and open space areas must be protected for those primary values. Some Public Land and Open Space designations are shown at a neighborhood scale. As noted in the description of residential designations, elementary and junior high schools, neighborhood parks, and other public facilities are allowed on land designated for residential uses. In some cases where there are environmental constraints such as excessive slopes, or assets such as unique vegetation, the Public Land and Open Space designation may be applied to land that is not yet in public ownership. Those lands should be preserved, if possible, through public acquisition or tax relief programs. If that is not possible, development should be required to respond to their unique conditions through clustering in areas of least value as open space, locating circulation and access points in a manner that will result in minimal disturbance of natural conditions and other similar measures particularly sensitive to such sites. Natural Resource This designation applies to privately and publicly owned lands where development and conflicting uses must be prohibited to protect natural resource values. These lands must be protected and managed for the primary benefit of values, such as fish and wildlife habitat, soil conservation, watershed conservation, scenic resources, passive recreational opportunities, vegetative cover, and open space. The City must apply appropriate implementation measures to protect these areas and to direct development toward buildable lands adjacent to natural resource areas (master planning is a suitable technique for balancing conservation of natural resources and need for development). Where agricultural or forest practices have been identified as a conflicting use incompatible with protection of the primary values of the identified natural resource, those practices must be prohibited. Sand and Gravel This designation includes existing aggregate processing and extraction areas and may be applied to areas with such potential. Aggregate extraction and processing is allowed in designated areas subject to Metro Plan policies, applicable state and federal regulations, and local regulations. For new extraction areas, reclamation plans required by the State of Oregon 81Land Use Element Ordinance No. 6463 Exhibit A, Page 26 of 53 and Lane County provide a valuable means of assuringthat environmental considerations, such as re-vegetation, are addressed. It is important to monitor the demand for aggregate to ensure an adequate supply of this vital non-renewable resource is available to meet metropolitan needs. Urban Holding Area - Employment The Urban Holding Area - Employment (UHA-E) designation identifies urbanizable areas within the Springfield UGB to meet Springfield's long term employment land needs for the 2010-2030 planning period. The UHA-E designation reserves an adequate inventory of employment sites, including sites 20 acres and larger, that are suitable for industrial and commercial mixed use employment uses that generate significant capital investment and job creation within — but not limited to—targeted industry sectors, business clusters and traded-sector industries identified in the most recent Springfield economic opportunities analysis and Springfield Comprehensive Plan Economic Element policies. Lands designated UHA-E are protected from land division and incompatible interim development to maintain the land's potential for planned urban development until appropriate urban facilities and services are planned or available and annexation to Springfield can occur, as described in the Springfield Comprehensive Plan Urbanization Element. The UHA-E designation remains in effect until the appropriate employment designation is adopted through a City-initiated planning process or an owner-initiated plan amendment process. Nodal Development Area (Node) Overlay Nodal development is a mixed-use, pedestrian-friendly land use pattern that seeks to increase concentrations of population and employment in well-defined areas with good transit service, a mix of diverse and compatible land uses, and public and private improvements designed to be pedestrian and transit oriented. Fundamental characteristics of nodal development require: • Design elements that support pedestrian environments and encourage transit use, walking and bicycling; • Transit access within walking distance (generally 1/4 mile) of anywhere in the node; • Mixed uses and a core commercial area so that services are available within walking distance; • Public spaces, including parks, public and private open space, and public facilities, that can be reached without driving; and • A mix of housing types and residential densities that achieve an overall net density of at least 12 units per acre. 91Land Use Element Ordinance No. 6463 Exhibit A, Page 27 of 53 Willamette River Greenway Overlay The Willamette River Greenway Boundary is shown on the Comprehensive Plan Map as an overlay. Refer to Metro Plan Chapter III-D for information, findings, and policies related to the Greenway. Mixed Use Area Overlay Refer to the Mixed Use designation description provided earlier in this section on page 6. Mixed Use is implemented as a base plan designation in refinement plan areas, except for the Multimodal Mixed Use Area in Glenwood which is an overlay designation that works in conjunction with the base plan designations. For areas outside of refinement plans, Mixed Use is implemented as an overlay and the underlying base plan designation determines the predominant land use. SPRINGFIELD LAND USE PLANNING GOALS Goal LU-1 Enable informed local decision-making with a property-specific Springfield Comprehensive Plan Map that provides a solid visual understanding of existing plans and policies related to how land can be used within the Springfield UGB. The Land Use Element implements and interprets these goals and principles through the following Land Use Policies and Implementation Strategies: SPRINGFIELD LAND USE POLICIES & IMPLEMENTATION STRATEGIES Policy LU.1 The Springfield Comprehensive Plan Map shows property-specific plan designations for each property within the Springfield UGB, except in the instances where flexibility is allowed as described below: a. Jasper-Natron: Properties with split plan designations in the Jasper-Natron area (extent of the Springfield UGB generally south of Quartz Avenue as shown in the map image on the following page) have ambiguous boundaries between plan designations. 101Land Use Element Ordinance No. 6463 Exhibit A, Page 28 of 53 Clarifying and determining specific boundaries of plan designations in this area will be considered as part of master plans, land divisions, or site plan review, without requiring a separate application or fee to process a plan amendment or zone change.This site- specific determination allows for considerations in response to development or site configuration (e.g., buildings, streets, or infrastructure) or development constraints (e.g., wetlands, slopes, or easements). Once a plan designation boundary in this area is clarified and made specific, this option for flexibility will no longer apply to that boundary, as this policy is only intended for areas where ambiguity remains. Determinations of specific plan designation boundaries must meet the following criteria: o Boundaries between plan designations as currently shown on the Springfield Comprehensive Plan Map in this area must not be adjusted by: ■ More than 20% of the total property acreage for properties 5 acres or larger. ■ More than 300 feet for properties smaller than 5 acres. o Shifts in boundaries must maintain the acreage of sites identified as having redevelopment potential in the adopted Commercial and Industrial Buildable Lands Inventory.5 o Shifts in boundaries must maintain the general configuration of plan designations for vacant, partially vacant, and potentially redevelopable sites as shown on maps in the adopted buildable lands inventories (e.g., keep industrial designations clustered together and not interspersed with residential designations).6 o Shifts in boundaries must maintain or create consistency between plan designations on the Comprehensive Plan Map and land use districts on the Zoning Map. The land use district boundary on the Zoning Map will shift to align with any clarifications in the plan designation boundary. Shifts must continue to meet land use district development standards for lot area, dimensions, and coverage (e.g. minimum lot/parcel size) in the Springfield Development Code. 5 See Table 2-12: Site-by-site review of parcels with redevelopment potential (on PDF page 55) in the adopted Springfield Commercial and Industrial Buildable Lands Inventory. 6 For commercial and industrial plan designations,see Map 2-3:Vacant Commercial and Industrial land (on PDF page 46) in the in the adopted Springfield Commercial and Industrial Buildable Lands Inventory. For residential plan designations,see Map 3-1: Residential Land by Plan Designation (on PDF page 44) in the adopted Springfield Residential Land and Housing Needs Analysis. 11 JLand Use Element Ordinance No. 6463 Exhibit A, Page 29 of 53 Jasper-Natron Vicinty #0. r .— . r:'7 Urban Growth • � 164 Boundary r•- 0 Refinement ' Plan Boundary" Plan Designations Low Den$ily RmSitkWhal Medium Density Residential f -Nigh Density Residential f j -Community Commerdal -Light Medium Industrial N ,/■' Spaalal Heavy Indusmal Public Lend and Open Space io w / mot. f � .► •Rererm U.eppnbaei§Rer—f PW d.9—bass rh.wcaca.d prep oYsyr+aFws kr Rfrn nfu f Pia?'—s S PRINGFIELD p 108 tld 112 M1. ,.,` 00 rn�re a,.r.w,.o+.nw rHa,axw+rwrr i+r.:r+xNMr,xsers `r tt.emiaeiGly rry enV ass or Jnl%yp ,p h 6RfGON fus arorlu. b. Public Land and Open Space near natural resources: Properties that have a partial Public Land and Open Space designation or are adjacent to Public Land and Open Space designations that intend to follow certain natural resources including the Mill Race and adjacent Mill Pond (based on the old extent of the Mill Pond as shown on the Downtown Refinement Plan Diagram), Island Park Slough, and Jasper Slough have ambiguous boundaries between plan designations. For reference, these resources are shown on the Water Quality Limited Waterways map. Clarifying and determining specific boundaries of plan designations in this area will be considered as part of master plans, land divisions, or site plan review, without requiring a separate application or fee to process a plan amendment or zone change, in order to allow for considerations in response to development or site configuration (e.g., buildings, streets, or infrastructure) or development constraints (e.g., wetlands, slopes, or easements). 121Land Use Element Ordinance No. 6463 Exhibit A, Page 30 of 53 Once a plan designation boundary in these areas is clarified and made specific, this option for flexibility will no longer apply to that boundary unless the natural resource changes location or configuration. Clarifying and determining specific plan designation boundaries must meet the following criteria: o The Public Land and Open Space plan designation boundary will shift to align with riparian areas, wetland delineations, or top of bank for Water Quality Limited Watercourses. o Shifts in boundaries must maintain the acreage of sites identified as having redevelopment potential in the adopted Commercial and Industrial Buildable Lands Inventory.7 o Shifts in boundaries must maintain the general configuration of plan designations of vacant, partially vacant, and potentially redevelopable sites as shown on maps in the adopted buildable lands inventories.8 Implementation Strategy 1.1: Amend Section SDC 3.1.115 to add alignment of a land use district boundary to match the plan designation boundary as one of the criteria the Director may use to determine the location of a land use district boundary that is uncertain. Implementation Strategy 1.2: Amend SDC 3.1.115 to allow for shifts in land use district boundaries to match the plan designation boundaries that are clarified through the process allowed bythis policy. Policy LU.2 Public right-of-way is not assigned a base plan designation; however, overlays shown on the Comprehensive Plan Map will continue to apply to public right-of-way. Vacated public right-of-way is incorporated into the abutting property, typically to the centerline. However, in cases where only one abutting property dedicated right-of-way, all the vacated rights-of-way would be incorporated into that property. In any case,the vacated right-of-way acquires the base plan designation of the abutting property, without the need of a separate Comprehensive Plan Map amendment. Implementation Strategy 2.1: Consider amending the Springfield Development Code and Zoning Map to reflect that public rights-of-way are not assigned a base land use district. See Table 2-12: Site-by-site review of parcels with redevelopment potential (on PDF page 55) in the adopted Springfield Commercial and Industrial Buildable Lands Inventory. 8 For commercial and industrial plan designations,see Map 2-3:Vacant Commercial and Industrial land (on PDF page 46) in the in the adopted Springfield Commercial and Industrial Buildable Lands Inventory. For residential plan designations,see Map 3-1: Residential Land by Plan Designation (on PDF page 44) in the adopted Springfield Residential Land and Housing Needs Analysis. 131Land Use Element Ordinance No. 6463 Exhibit A, Page 31 of 53 Policy LU.3 Encourage alignment of plan designations on the Comprehensive Plan Map and land use districts on the Zoning Map. Implementation Strategy 3.1: Explore plan/zone conflicts when addressing land needs identified in updates to the buildable lands inventories. Implementation Strategy 3.2: Continue to encourage property owners to rezone their property in conformance with the plan designation by offering application fee waivers or reductions. Policy LU.4 Allow for administrative adjustments and minor adjustments to the Springfield Comprehensive Plan Map without requiring a legislative plan amendment. a. Show minor adjustments to plan designation boundaries that have been approved in a land use decision. b. Show gradual changes to property boundaries caused by the migration of waterways: o Where a plan designation boundary is the McKenzie River or Willamette River, the plan designation boundary will shift with changes to the Ordinary High-Water Line (OHWL), except when a change to the OHWL is caused by a sudden, catastrophic change in the river's course. o Where a plan designation boundary is the centerline of a non-navigable stream, the plan designation boundary will follow changes to the stream centerline as minor changes occur. c. Allow correction of cartographic errors, such as minor shifts in the display of property lines and other map features resulting from updates to mapping projections. This does not include changes in property lines as a result of a land use application. Implementation Strategy 4.1 The City will make routine administrative updates to the Springfield Comprehensive Plan Map and will document the date the map was updated and any related land use decisions and post-acknowledgement plan amendments that have been incorporated since the last map update. 141Land Use Element Ordinance No. 6463 Exhibit A-3 -Amendments to the Springfield Comprehensive Plan's Residential Land Use and Housing Element and Urbanization Element Exhibit A, Page 32 of 53 HOUSING2 RESIDENTIAL LAND USE & 16 ELEMENT OVERVIEW The Springfield 2030 Refinement Plan Residential Land Use & Housing Element addresses Statewide Planning Goal 10: Housing, "To provide for the housing needs of the citizens of the state." This element includes goals, objectives, policies and implementation actions that are consistent with and carry out the Eugene Springfield Metropolitan Plan Residential Land Use and Housing Element (Chapter III-A), while demonstrating the City's ongoing commitment to increasing housing choice and residential densities within Springfield's separate Urban Growth Boundary. Together, Goal 10 and Oregon's "needed housing" statutes require that Springfield provide a 20- year buildable land supply within a separate Urban Growth Boundary(UGB)to meet the housing needs of current and future residents.The policies in this element have their basis in the Residential Land Study conducted by the City 2007-2010.The residential buildable land inventory and technical analysis is contained in a Technical Supplement to this plan—the Springfield Residential Land and Housing Needs Analysis (RLHNA).The RLHNA is an analysis of land supply and housing demand prepared for the City of Springfield by ECONorthwest,April 2011 that incorporates input from citizens, stakeholder groups, commissions and elected officials received throughout a multi-year citizen involvement process that included a Residential Lands advisory committee, online public surveys, community workshops,work sessions, open houses and public hearings.The RLHNA and this element demonstrate compliance with Goal 10 and related "needed housing" statutes (especially ORS 197.296 and 197.304).The factors reviewed to develop a projection of future housing demand include historical development trends, residential development trends, and trends in housing mix and tenure; density;the projected number,type and size of households; and the demographic characteristics of the population. ORS 197.303 requires Springfield to demonstrate as required by ORS 197.296 that its comprehensive plan provides sufficient buildable lands to accommodate needed housing for 20 Ordinance No. 6463 281 Exhibit A, Page 33 of 53 years.The policies in this chapter establish Springfield's long-term policies and shorter-term strategies for meeting Springfield's identified housing needs for the plan period 2010-2030.The provisions in this plan supplement, refine and support policies contained in the Eugene Springfield Metropolitan Plan Residential Land Use and Housing Element and are applicable only within the Springfield UGB.The goals, policies and implementation actions were developed to respond to the findings in the RLHNA in ways that best implement Springfield's preferred residential land use growth management strategies—as identified and prioritized through the public involvement process.The policies and implementation actions in this elementsupporta 20% increase in density over the historical development pattern by facilitating more dense development patterns. In those instances where findings and policies in this element differ quantitatively from policies in the Metro Plan Residential Land Use and Housing Element,the Springfield 2030 Refinement Plan Residential Land Use& Housing Element policies shall prevail. Issues not addressed in this element are addressed in the Metro Plan Residential Land Use and Housing Element. The policies in this element provide direction for Springfield in updating refinement plans, zoning and development regulations to address the community's housing needs. As Springfield implements this element of the Springfield 2030 Refinement Plan—through future land use refinement plan updates at the city-wide, district, neighborhood, and corridor scale—the City shall continue to analyze the suitability of residential and residential mixed use designations in terms of density and location and, based on this analysis, may propose changes to the Sorin,gfield Comprehensive Plan Metro Dlon Piagrom and C94Pgfio!d ' 939 R84%mont Dlon Piagrom Tho Q191 in lrl '�ri48 /12(1 Dofinomont T nr adjaG8Rt W reSirdeRtial dictrintc of the Git�' METRO AREA HOUSING GOAL The 2004 Update of the Eugene Springfield Metropolitan Area General Plan includes a Residential Land Use and Housing Element that articulates the region's housing goals and objectives. The Metro Plan lists a single residential land and housing goal: Provide viable residential communities so all residents can choose sound, affordable housing that meets individual needs. The Springfield 2030 Refinement Plan implements,interprets,and supplementsthis goal as follows: SPRINGFIELD RESIDENTIAL LAND & HOUSING GOALS ® Plan for Growth and Needed Housing Ordinance No. 6463 291Springfield Comprehensive Plan Exhibit A, Page 34 of 53 As documented in the RLHNA,the land currently designated for High, Medium and Low Density Residential and Nodal Mixed Use plan designations will accommodate Springfield's expected need for residential development and redevelopment. Springfield's residential and mixed use districts—as depicted in the Springfield Comprehensive Plan Mao and Springfield refinement plans and as proposed in the Implementation Strategies in this element—provide a residential land base with sufficient capacity for the market to develop adequate numbers of needed housing units to meet expected demand through 2030. In 2010,there was a surplus of buildable land in both the Low and Medium Density Residential designations; however,there was a deficit in the High Density Residential designation of 28 gross buildable acres.With a mandatory commitment to amend the Glenwood Refinement Plan by 2012, Springfield has adopted an effective measure to ensure that the City's separate UGB will include enough buildable land to satisfy Springfield's projected housing needs by type and density range, as determined in the RLHNA. The residential and mixed use designations and the policies adopted in this element are of sufficient specificity to accommodate the varying housing types and densities identified in the Springfield Residential Land and Housing Needs Analysis. ® Foster Housing Choice and Affordability The nnetve Rlon and SpFipgf4eld 2939 Refinement Rlon Sarin field Comprehensive Plan Map designates land for residential use and mixed use to provide a range of housing choices for people of all incomes and household types. Projecting the types of housing that will be built for the next 20 years is complex. Housing choices of individual households are influenced in complex ways by dozens of factors. Springfield's housing market is influenced by the regional Lane County housing market and is the result of the individual decisions of thousands of households. The City is committed to making sure that community residents enjoy access to decent housing.This commitment goes well beyond the statutory requirement to maintain a 20-year supply of residential land within Springfield's separate UGB.The policies in this element promote and support housing choice and affordability.The availability of affordable housing choices for different types of households is a key component of a livable community.The location of housing in relation to jobs, shopping,transportation and other services significantly impacts quality of life. ® Encourage Housing Diversity&Quality Neighborhoods The demographic make-up of households in Springfield is changing.The average age of city residents is increasing, and fewer households have children.The average age of a Springfield resident is younger than the Lane County average, even as the Lane County average is trending older. Household size has continued to shrink,though more slowly in the 1990's than in previous Ordinance No. 6463 301Residential Land Use & Housing Element Exhibit A, Page 35 of 53 development(21 acres/270 DU in the Glenwood Riverfront); and 3) land within approved master-planned sites with capacity for residential development (730 DU in RiverBend and 518 DU in Marcola Meadows). A map of these tax lots appears as Map 3-2 in the RLHNA. 8. Owners of residentially planned land in the buildable land inventory as identified herein or as amended pursuant to Oregon post-acknowledgement plan amendment procedures are entitled to residential zoning that matches the plan designation. The City's Development Services Department has an existing process in place to rezone property with plan-zone conflicts at no cost to the property owner (3 times/year). 9. Springfield will need to provide about 5,920 new dwelling units to accommodate growth between 2010 and 2030 plus 291 group quarter dwellings for a total 6,211 dwelling units. For non-group quarter dwellings, about 3,552 dwelling units (60%)will be single-family types, which include single-family detached, manufactured dwellings, and single-family attached housing.About 2,368 units(40%) will be multi-family housing. 10. The results of the RLHNA indicate that Springfield has an overall surplus of residential land, but has deficits in the High Density Residential and Parks and Open Space27 categories. The Springfield UGB has enough land for 9,018 new dwelling units. There is sufficient buildable land in Springfield's UGB designated for low and medium density residential uses to meet the future housing needs of the projected population. ■ The Low Density Residential designation has a surplus of approximately 378 gross acres. ■ The Medium Density Residential designation has a surplus of approximately 76 gross acres. 11. There is not enough buildable land in Springfield's UGB designated for high density residential uses within the existing Springfield UGB to meet the future housing needs of the projected • population. The High Density Residential designation has a deficit of approximately 28 gross acres.At a minimum, the City will meet the high density residential land deficit of 28 acres (including 7 acres of HDR designated land to provide public open space for the higher density development, as well as any needed public facilities)through its redevelopment strategies in Glenwood. 12. The Parks and Open Space28 designation has a deficit of 300 acres. This need does not require the City to expand the UGB for parks and open space. The City has a surplus of buildable lands in the low and medium density residential plan designations that can provide land for future parks within those designations, consistent with the objectives of the adopted Park and Recreation Comprehensive Plan. A portion of the parks and open space need can 2'The Springfield Comprehensive Plan was amended to reflect adoption of the Springfield Comprehensive Plan Map,which renamed the "Parks and Open Space"designation to be "Public Land and Open Space."These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024(Springfield Ordinance No.XXXX, and Lane County Ordinance PA 1390 and Ordinance 23-07). 28IBID Ordinance No. 6463 391Springfield Comprehensive Plan Exhibit A, Page 36 of 53 5 URBANIZATION ELEMENT OVERVIEW The Springfield 2030 Comprehensive Plan (2030 Plan) is currently being developed as Springfield's new land use comprehensive plan policy document applicable to Springfield's jurisdictional area of the Metro Plan.The Springfield Comprehensive Plan Urbanization Element is the chapter of the 2030 Plan that guides future development in Springfield by describing how and where land will be developed and infrastructure provided to meet long term growth needs while maintaining and improving community livability. The purpose of the Urbanization Element is to inform and guide long range land use and public facilities planning to address Springfield's land needs for the planning period 2010-2030 in compliance with Statewide Planning Goal 14, Urbanization. Statewide Planning Goal 14. Urbanization - To provide for an orderly and efficient transition from rural to urban land use, to accommodate population and urban employment inside urban growth boundaries, to ensure efficient use of land, and to provide for livable communities. Oregon law requires cities and counties to establish and maintain urban growth boundaries (UGBs) for urban areas to provide land for urban development needs and to identify and separate urban and urbanizable land from rural land.The land within the UGB includes "urban" lands within the incorporated City and "urbanizable lands29" —those lands that are within the UGB but have not yet been annexed to the City. Urbanizable lands are considered to be available for urban development 29 Oregon's Statewide Planning Goals&Guidelines define "urbanizable land"as "Urban land that,due to the present unavailability of urban facilities and services,or for other reasons,either:(a) Retains the zone designations assigned prior to inclusion in the boundary,or(b)Is subject to interim zone designations intended to maintain the land's potential for planned urban development until appropriate public facilities and services are available or planned." Ordinance No. 6463 441Urbanization Element Exhibit A, Page 37 of 53 consistent with plans for the provision of urban facilities and services. The City and Lane County are required to co-adopt comprehensive plan policies, zoning, and development code provisions to regulate land uses and land divisions of urbanizable lands to maintain their potential for planned urban development until adequate public facilities and services necessaryfor urban level of development are available or planned. The Urbanization Element establishes the comprehensive plan policies and zoning applicable to urbanizable lands within Springfield's Urban Growth Boundary(UGB) that are necessaryto efficiently and effectively plan and manage the land supply as land uses transition from rural to urban. This policy direction is based on the need to: Designate a 20-year supply of urbanizable land to accommodate population and employment growth. Allow and regulate interim land uses that do not impede future development of planned urban land uses and densities. Plan for the orderly and efficient extension of public facilities and services. Designate land for community open space and recreational needs. Designate land to provide and manage the public facilities and environmental services needed to serve Springfield's urban area. Manage growth and improve community livability through increasingly efficient use of land consistent and compatible with the community's needs, resources, opportunities and advantages within the broader Southern Willamette Valley region. The policy direction provided by the Urbanization Element guides comprehensive planning coordination, zoning and land use regulation within the UGB, including: Future refinement planning and zoning at the more detailed level of neighborhood, district (e.g. Gateway), or corridor; Future regional and local transportation, infrastructure and capital improvement planning; Future comprehensive plan, zoning and Springfield Development Code amendments; Review of property owner-initiated land use proposals; and • Review of property owner-initiated land use applications including annexation requests. , SPRINGFIELD URBANIZATION PLANNING GOALS The following Urbanization Element Planning Goals express the desired community development outcomes and benefits the City aspires to achieve by planning and managing land in new growth areas of the City. 451Springfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 38 of 53 Promote compact, orderly and efficient urban development by guiding future growth to vacant sites and redevelopment areas within the established areas of the city, and to urbanizable lands where future annexation and development may occur. ® Promote efficient and economical patterns of mixed land uses and development densities that locate a variety of different life activities, such as employment, housing, shopping and recreation in convenient proximity; and where accessible by multiple modes of transportation — including walking, bicycling, and transit in addition to motor vehicles —within and between neighborhoods and districts. Provide adequate level of urban services, including but not limited to public water, MW wastewater, stormwater management systems, environmental services and an urban multi-modal transportation system as urban development occurs within the Springfield UGB. As the City grows and as land develops, maintain and reinforce Springfield's identity as �t a river-oriented community by emphasizing and strengthening physical connections between people and nature in the City's land development patterns and infrastructure design. Increase Springfield's capability to respond to natural hazard impacts and to enhance public safety, health and robustness of the economy and natural environment. Create opportunities for innovative urban development and economic diversification. MANAGING URBAN TRANSITION Springfield manages the orderly and efficient transition of land from rural to urban to implement the Urbanization Planning Goals through application of the following planning policies, implementing ordinances,tools and procedures: The Urban Growth Boundary Comprehensive plan designations and policies Springfield Zoning Map Springfield Development Code land use regulations and development standards—including the Annexation process Planned provision of urban facilities and services: - Metropolitan Public Facilities and Services Plan - Springfield Wastewater and Stormwater Master Plans - Springfield Transportation System Plan - Springfield Capital Improvement Program 461Urbanization Element Ordinance No. 6463 Exhibit A, Page 39 of 53 SPRINGFIELD URBAN GROWTH BOUNDARY The Springfield UGB establishes a 20-year supply of land based on demonstrated need to accommodate long range population growth and demonstrated need for housing, employment opportunities, livability and uses such as public facilities, streets and roads, schools, parks or open space. The UGB is mapped and specifically delineated along its entire circumnavigation of the city. The UGB is graphically depicted in the "Springfield Urban Growth Boundary map." The UGB Technical Supplement30 to the Urbanization Element provides documentation to more precisely describe the parcel-specific boundary location — a description of the methodology used by Springfield to prepare the precise UGB location using contemporary Geographic Information Systems (GIS) technology, previous urban growth boundary location descriptions, surveys, applicable sections of the ORS and OARS and related land use decisions; and a list of tax lots that are split by the UGB. Where existing and planned right-of-way comprise portions of the UGB,the full width of that right-of-way lies within the UGB, except along the western track where the boundary is mapped and described as the center line of Interstate Highway 5 between the north-bound and south- bound lanes. Springfield's urban and urbanizable area extends approximately 5 miles from north (Gateway) to south (Glenwood McVay corridor) along the Interstate Highway 5 corridor as it travels through the Eugene-Springfield metro area; and approximately 8.6 miles from west to east as measured along the Franklin Boulevard-Main Street Corridor-McKenzie Highway from the Interstate Highway 5 Willamette River bridge to the easternmost point of the UGB. The Springfield UGB includes most but not all land between the McKenzie River on the north and the Middle Fork Willamette River on the south. The eastern portion of the UGB includes the Thurston South Hills and follows the ridgeline south and west to Jasper Road to encompass the area known locally as Jasper- Natron. SPRINGFIELD UGB AMENDMENTS 2011-2016 Prior to 2011, Springfield and Eugene shared one Metro Area UGB. Oregon Revised Statute 197.304 (2007) required both cities to independently conduct housing needs analyses and to establish separate UGBs to meet those needs. In 2007, Springfield began an evaluation of the UGB for two categories of land need: housing and employment. The Springfield UGB was first acknowledged in 2011, designating a land supply to meet the City's residential land and housing needs for the 2010-2030 planning period.31 The Springfield UGB included all of the lands and waters within the previously acknowledged Eugene- Springfield Metropolitan Area General Plan Boundary located east of the centerline of Interstate 30 Springfield Ord.6361, Lane County PA 1304, Exhibit C-2 UGB Technical Supplement 31 Springfield Ordinance No. 6268, Lane County Ordinance No.PA 1274 471Springfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 40 of 53 Highway 5. (i.e. the Springfield UGB is coterminous with the Metro Plan Boundary on the east side of 1-5). 32 The UGB provides sufficient land designated to meet all residential land needs through the year 2030 without expandingthe UGB—through implementation of plan and zoning amendments and Springfield Development Code land use efficiency measures. The UGB was subsequently amended in 2016 to designate a 20-year land supply for employment and natural resource protection, and to designate public land for parks, open space and public/semi-public facilities.33 With the exception of seven needed employment sites larger than five acres,the City's employment land inventory was found to be sufficient to meet all employment land needs for the planning period without expanding the UGB. The employment land UGB expansion added approximately 257 suitable and developable acres to provide sites for target industries and uses that require sites larger than 5 acres.34 The public land UGB expansion added approximately 455 acres of publicly-owned land to the UGB. The Springfield UGB as amended and acknowledged in 2019 contains approximately 15,411 acres of land. RELATIONSHIP TO THE METRO PLAN, FUNCTIONAL PLANS & REFINEMENT PLANS The Springfield Comprehensive Plan Urbanization Element was adopted by the City of Springfield and Lane County as a city-specific comprehensive plan policy element to independently address a planning responsibility that was previously addressed on a regional basis in the Metro Plan.35 The Urbanization Element goals, policies and implementation actions replace the more general Metro Area-wide goals,findings and policies contained in Metro Plan sections entitled "Growth Management Goals, Findings and Policies" (Metro Plan 11-C) and "Urban and Urbanizable Land" (Metro Plan ll-E) for lands within the Springfield UGB. The Metro Plan establishes a broad regional framework for Eugene, Springfield, and Lane County to coordinate comprehensive planning within the Eugene-Springfield Metropolitan planning area. Metro Plan Chapter I explains the relationship between city-specific comprehensive plans, the broad policy framework of the Metro Plan and the regionally- coordinated functional plans. The Springfield Comprehensive Plan elements— includingthis Urbanization Element—explicitly supplant the relevant portion of the Metro Plan. Should inconsistencies occur between the Springfield Comprehensive Plan and a refinement or functional plan, or references in the Springfield Development Code that refer to Metro Plan policies,the Springfield Comprehensive Plan is the prevailing policy document.36 32 Springfield Ord. 6288, Eugene Ord.20511, and Lane County Ord. PA 1281 33 Springfield Ordinance 6361, Lane County Ordinance PA 1304, Exhibit A-2 34 Springfield Commercial and Industrial Land Inventory and Economic Opportunities Analysis,2015 35 Metro Plan pp. iii-iv and Chapter II describes the incremental Metro planning area shift towards separate Springfield and Eugene UGBs and city-specific comprehensive plans. 36 During the period of transition from Metro Plan to local comprehensive plans,Springfield's "comprehensive plan"consists of the acknowledged Metro Plan and the acknowledged Elements of the Springfield 2030 Comprehensive Plan. 481 irbanization Element Ordinance No. 6463 Exhibit A, Page 41 of 53 RESPONSIBILITIES FOR LAND USE PLANNING & DEVELOPMENT WITHIN THE SPRINGFIELD UGB Metro Plan Chapter II and Chapter IV describe jurisdictional responsibilities within the Eugene- Springfield Metropolitan planning area. The division of responsibility for metropolitan planning between the two cities is the Interstate 5 Highway. Springfield, Eugene and Lane County are required to co-adopt a UGB or Metro Plan boundary change that crosses the Interstate 5 Highway. For purposes of other amendments and implementation of the Metro Plan, Lane County has joint responsibility with Springfield between the city limits and the Metro Plan Boundary east of the Interstate 5 Highway. Metro Plan Chapter IV describes the procedures for review, amendments and refinements of the Metro Plan, including amendments of the Metro Plan adopting singular or multiple Elements of the Springfield Comprehensive Plan that explicitly supplant relevant portions of the Metro Plan. Metro Plan amendments that are being considered in conjunction with a city-specific plan adoption or amendment follow the procedures described in Metro Plan Chapter IV. Land use planning and development within the Springfield city limits is the sole responsibility of the City of Springfield. Land development within Springfield's urbanizable areas is planned and cooperatively administered by the City of Springfield incoordination with Lane County in accordance with the policies in this Plan and as described in the ORS 190 Intergovernmental Agreement(1987) between the City of Springfield and Lane County.37 The Agreement delegated building, zoning, and planning administration and decision making authority for services for the land between Springfield's UGB and the city limits from the County to the City of Springfield and describes criteria and procedures for land regulation and management. Planning for regionally significant public investments within Springfield's UGB is coordinated on a metropolitan-wide basis by utilizing the regional transportation planning and public facilities planning processeS38 as described in the Metro area functional plans—includingthe Eugene- Springfield Public Facilities and Services Plan and the Regional Transportation System Plan. Some of Springfield's neighborhood refinement plans (such as the Glenwood Refinement Plan) may include a refined level of policy guidance for urbanization in specific locations within Springfield's UGB. • 37 Agreement Regarding the Transfer of Building and Land Use Responsibilities within the Urbanizable Portion of the Springfield Urban Growth Boundary,January 1, 1987. 38 For other related policy discussion,see the Public Facilities and Services Element in Metro Plan Chapter III-G.The Springfield Comprehensive Plan does not address service districts. 491Springfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 42 of 53 PLAN DESIGNATION & ZONING LAND USE DISTRICTS OF UNINCORPORATED "URBANIZABLE" LANDS IN THE UGB The unincorporated land within the Springfield UGB is urbanizable and is considered part of Springfield's land base for housing and employment as identified in the most recent buildable land inventories. It is assumed that buildable39 lands will eventually be included in the City's incorporated area and developed to accommodate designated urban uses and densities. Urbanizable lands exist in various areas of the Springfield UGB and are designated for a variety of land uses as shown in Table 1 (next page).The land use designation determinesthe applicable ZOR'Rgland use district, both before after annexation. In addition to the plan designation, land use districtzening and the applicable policies of this Urbanization Element, Springfield is required by Oregon law to implement land use controls regulating interim development on unincorporated land to prevent land divisions and uses that would preclude future development of planned urban uses and densities. As shown in Table 1, Springfield Land Use Districts g implementsthis provision of the lawthrough two different land use districtgmechanisms in the Springfield Development Code: 1)the Agriculture- Urban Holding Area gland Use District(AG)was established and applied to land after 2015to implementthe Urban Holding Area -Employment and Natural Resource plan designations; and 2)the Urbanizable Fringe Overlay Zoning District(UF-10)was established and applied to lands prior to 2015 and is a zoning overlay district placed over multiple plan designations. Both zeningland use district mechanisms were established to implementthe goal of compact growth through provisions that maintain the supply of land for urban development in areas between the city limits and the UGB. Unincorporated public land designated Public Land and Open Space Government and EduGatien Or PUbl in/Semi P++E is zoned Public Land and Open Space on the Springfield Zoning Map. 39 Some lands have absolute development constraints that for inventory purposes are not assumed to be buildable.See Findings section this Elementfor more information. 501Urbanization Element Ordinance No. 6463 Exhibit A, Page 43 of 53 Table 1: Urbanizable Land Plan Designations &Applicable A+mg-La�nd Use, Districts Metro-Springfield Comprehensive Springfield Ze►aing-Land Use District(s) Springfield Land Use Zoning District(s) Plan Designation Applicable Before Annexation Applicable After Annexation Employmentzeaii4 -and use districts such as: Urban Holding Area— Agriculture—Urban Holding Area (AG) Employment Employment Zeafng-Land Use District Mixed Use40 Campus Industrial Special Heavy Industrial Urbanizable Fringe Overlay District(UF- Special Heavy Industria141 Light Medium Industrial 10) Light Medium Industrial Commercial Urbanizable Fringe Overlay District(UF- Community Commercial Low Density Residential Low Density Reciden+ialR-1 Small I n+l7ecirlen+ia44Z 10) Urbanizable Fringe Overlay District(UF- Medium Density Residential Medi„M DeRGity Reside +;,IR-22 High Density Residential High Density Reside +;,IR-33 Glenwood Refinement Plan: Urbanizable Fringe Overlay District(UF- Residential Mixed Use 10) Glenwood Residential Mixed Use FleRWeed Commercial Mixed Use and Glenwood Commercial Mixed Use Glenweed-Office Mixed Use Glenwood Riverfront Mixed-use Plan Glenwood Office Mixed Use GlenwoodEmployment Mixed Use Gleaweed Employment Mixed Use District Glenwood Refinement Plan: Urbanizable Fringe Overlay District(UF- LGw Density Reside +,aIR-11 Low Density Residential 10) Special Density Residential43 Glenwood Refinement Plan: Urbanizable Fringe Overlay District(UF- Light Medium Industrial 10) Light Medium Industrial44 Glenwnpd Refinement Dl;;n- Diihlin I end and open Cn a (PLO) Public Land and Open Cpane(DI Q) Public Land and Open Space Public Land and Open Space PLO Public Land and O Space PLO cemi Diihlin p p (PLO) pen p Natural resource protection zGniag land use Natural Resource Agriculture—Urban Holding Area (AG) districts such as: Zoning-Land Use District Natural Resource Public Land and Open Space r„e...... �n+ G+ n�+inn Diihlin I and and Open C e/DI n14s o,,hlin I and and open Spare(PLO) • 40 Zoning to be determined through subsequent Springfield 2030 Comprehensive Plan or refinement plan updates. 41 Ibid. 4z 43 Ibid.Springfield Comprehensive Plan Residential Land Use &Housing Element Policy H.7, Implementation Action 7.4 requires analysis to determine applicability of small lot zoning in Glenwood south of Franklin Blvd. 44 Zoning to be determined through subsequent Springfield 2030 Comprehensive Plan or refinement plan updates. 4-54b+- 51 ISpringfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 44 of 53 Urban Holding Area - Employment (UHA-E) Metro Plan Designation Lands brought into Springfield's UGB to address 2010-2030 land needs for suitable large employment sites are designated Urban Holding Area - Employment (UHA-E) as an interim plan designation to maintain the land's potential for planned urban development until appropriate urban facilities and services are planned or available and annexation to Springfield can occur. The Urban Holding Area - Employment (UHA-E) plan designation reserves suitable large employment sites to meet Springfield's long term employment land needs for the 2010-2030 planning period. Lands within the UHA-E designation are planned and zoned for the primary purpose of reserving an adequate inventory of large employment sites that are well located and viable for industry and not easily replicable elsewhere. The Springfield 2030 Comprehensive Plan designates suitable large sites for employment uses that generate significant capital investment and job creation within — but not limited to—targeted industry sectors, business clusters and traded-sector46 industries identified in the most recent economic opportunities analysis and Economic Element policies of this Plan. The City expanded the UGB in 2016 to support diversification of the economy by increasing opportunities for siting target industry employers that require large sites. The expansion was based on the lack of vacant or potentially redevelopable parcels larger than five acres in the City's 2008 inventory of employment land and the need for large parcels identified in the Economic Opportunities AnalysiS.47 In 2008-2016, the City conducted an Urban Growth Boundary Alternatives Analysis and discovered that few viable options exist for bringing in suitable large parcels of employment land close enough to the City's urban area to maintain a compact urban form. This is due to Springfield's geography and topography. The City is situated between the McKenzie and Willamette Rivers and their floodplains, and surrounded by steeply sloped hills on three sides, thus suitable,serviceable, close-in land is in scarce supply. The Urban Holding Area - Employment (UHA-E) designation reserves employment sites within urbanizable areas of 50 or more suitable acres to support creation of economic districts that will accommodate the site needs of target employment sectors. The size of employment districts and parcels of urbanizable land designated UHA-E provides adequate dimension so as to maximize the utility of the land resource and enable the logical and efficient extension of services to all parcels within the UHA. The UHA-E plan designation and Agriculture - Urban Holding Area Land Use District work together to serve important purposes in the 2030 Comprehensive Plan. Land suitable for large employers is identified, reserved and protected from incompatible interim development. Bringing these lands into the UGB as designated holding areas subject to the policies of this Urbanization Element and the regulations of the Springfield Development Code establishes the first step for the City— in cooperation with Lane County—to comprehensively plan the urbanizable land supplyto accommodate long range employment site needs and to protect natural resources. The UHA-E designation remains in effect until the appropriate 46 ORS 285A.010(9) 47 Springfield Commercial and Industrial Buildable Land Inventory and Economic Opportunities Analysis,Table 5-4 521 1rbanization Element Ordinance No. 6463 Exhibit A, Page 45 of 53 employment designation is adopted through a City-initiated planning process or an owner- initiated plan amendment process. Lands designated UHA-E and zoned AG are located in two areas of the UGB:48 Table 2: Urbanizable Land Designated Urban Holding Area—Employment Acres #of Suitable Name of Area Designated Acres employment Location Zoned AG UHA-E acres (UHA-E) North Gateway 139.4 gross 193 132.1 suitable North of UHA -E acres acres Gateway/International (includes Way, east of 1-5 right of way) Mill Race District 133 gross 135 125 suitable acres South of tMain Street, via UHA-E acres South 28 and M Streets (includes right of way) Springfield Development Code Agriculture — Urban Holding Area (AG) 'Land Use District Implements the UHA-E Plan Designation Lands within the UHA-E designation are zoned Agriculture - Urban Holding Area49 to retain large parcel sizes and current predominant farm uses until land is planned and zoned to allow urban development. The Springfield Development Code Agriculture - Urban Holding Area Land Use District (AG) is established to implement the goal of compact growth through provisions that control the potential for premature or incompatible development on large sites added to the UGB to diversify the economy. The AG District includes provisions to limit the division of land and prohibit urban development. A 50-acre minimum lot size is applied to lots/parcels greater than 50 acres and a 20-acre minimum lot size is applied to lots/parcels less than 50 acres to protect undeveloped sites from inefficient piecemeal development until land is planned and zoned to allow annexation and site development with urban employment uses and densities. All interim development in the AG District must be designed to City standards. , 48 Springfield Ordinance 6361, Lane County Ordinance PA1304, Exhibit A-2 49 Springfield Ordinance 6361, Lane County Ordinance PA1304,Exhibit A-3 531Springfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 46 of 53 Natural Resource (NR) Metro Plan Designation - North Gateway Site Land in North Gateway brought into Springfield's UGB to address 2010-2030 land needs for suitable large employment sites includes portions of properties within the floodway of the McKenzie River. Floodway is identified as an "absolute constraint" in the City's land inventories. Land within the floodway is not considered suitable to meet employment land needs and is not counted as developable in the inventory. The City and County included the floodway portion of the site in the UGB to allow consistent land use administration of the floodplain pursuant to the purposes and standards of the Springfield Development Code Floodplain Overlay District standards. The portion of the site North Gateway site within the FEMA floodway is designated Natural Resource, a designation applied to privately and publicly owned lands where development and conflicting uses are prohibited to protect natural resource values. In addition to the purposes of the Floodplain Overlay District, land designated Natural Resource is protected and managed for fish and wildlife habitat, soil conservation, watershed conservation,scenic resources, passive recreational opportunities, vegetative cover, and open space. Table 3: Urbanizable Land Designated Natural Resource (NR) Acres Name of Area Designated Acres Location Natural Zoned AG Resource North Gateway Natural Resource 53 53 North of Gateway/International (NR) Way, east of 1-5 Springfield Development Code Agriculture — Urban Holding Area (AG) 'Land Use District Implements the Natural Resource Plan Designation Lands within the Natural Resource designation are zoned Agriculture - Urban Holding Area to retain predominant farm uses and to direct development towards the unconstrained portions of the property that are designated UHA-E for employment uses. 541Urbanization Element Ordinance No. 6463 Exhibit A, Page 47 of 53 Springfield Development Code Agriculture — Urbanizable Fringe Zoning Overlay District (UF-10) Implements Varied Plan Designations: Urbanizable Fringe Overlay Zoning District (UF-10) The OF-10 Overlay District is applied over multiple plan designations as shown in Table 1, and includes unincorporated land in the following eight geographic areas of the UGB: • - 4: Urbanizable Land 1 Zoning District West Centennial Thurston South Hills Gateway-Hayden Bridge Jasper-Natron Clearwater South 2n Street Thurston Glenwood The OF-10 Overlay District includes provisions to limit the division of land and prohibit urban development. All interim development in the OF-10 Overlay District must be designed to City standards. The OF-10 Overlay is removed automatically when annexation to the City is approved through the City's land use review process, as described in the Springfield Development Code Annexation chapter. SPRINGFIELD ANNEXATION PROCESS The annexation process—as articulated in the Springfield Development Code—guides the efficient transition of land from rural to urban uses to accommodate population and urban employment growth within Springfield's UGB by: Providing land to accommodate future urban development; Providing land to accommodate necessary public facilities or services; and Ensuring that land designated to accommodate population and urban employment growth is developed to achieve its planned urban uses, densities and economic potential in a manner consistent with the urban development standards of the Springfield Development Code. Oregon law grants Springfield City Council the authority to review and approve or deny petitions to annex territory located within Springfield's UGB to the City. Statutory requirements for annexation are implemented through the Springfield Development Code. The Code prescribes the City's land use process and criteria for approving annexation petitions. The intent is that annexation will occur incrementally as property owners desire to develop or redevelop land. Annexation is required when unincorporated property is proposed to be 551Springfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 48 of 53 developed or redeveloped with planned urban uses and densities or where necessaryto abate public health hazards50 such as failed septic systems. Key Urban Services Required for Annexation to the City of Springfield The policies and implementation strategies in the Urbanization Element ensure that urban facilities and services directly related to land use planning and the efficient transition of land from urbanizable to urban pursuant to Goal 14 Urbanization are provided to urbanizable lands in a timely, orderly, and efficient manner to serve planned land uses within Springfield's urban growth boundary and within the metropolitan area. The Springfield Comprehensive Plan Urbanization Element retains the long-standing Metro area urbanization policy criteria for approving annexations: Springfield Comprehensive Plan Urbanization Element Polices Unincorporated land within the Springfield UGB may be developed with permitted uses at maximum density only upon annexation to the City when it is found that key urban facilities and services can be provided to the area to be annexed in an orderly and efficient manner. Provision of these services to the area proposed for annexation is consistent with the timing and location for such extension, where applicable, in the City's infrastructure plans —such as the Public Facilities and Services Plan; the Springfield Transportation System Plan; the City's Capital Improvement Program; and the urbanization goals, policies and implementation strategies of this Element—or a logical time within which to deliver these services has been determined, based upon demonstrated need and budgetary priorities. Oregon law includes requirements that must be met prior to annexation approval to ensure orderly growth, such as prohibiting non-contiguous annexations and providing information about properties' contribution to offsite public systems. Oregon Administrative Rules establish policies to protect public waters from human health hazards, including standards and permitting requirements for onsite wastewater treatment systems construction, alteration and repair. These rules require connection to a sewerage system that can serve the proposed sewage flow when such a system is physically and legally available within the distances specified in the OARS. The City of Springfield requires annexation before wastewater services are extended as planned in the Metropolitan Public Facilities and Services Plan. For the purposes of land use planning and annexation,the Springfield Comprehensive Plan defines key urban facilities and services as those services and facilities that are necessary to serve planned urban uses and densities in accordance with applicable Statewide Planning Goals, statutes and administrative rules: wastewater service; stormwater service; transportation; solid waste management;water service; fire and emergency medical services; police protection; citywide park and recreation programs; electric service; land use controls; 50 Oregon Revised Statutes Chapter 222 Health Hazard Abatement 561 .irbanization Element Ordinance No. 6463 Exhibit A, Page 49 of 53 communication facilities; and public schools on a district-wide basis. All references to Metro Plan policies regarding "key urban services" in Springfield refinement plans and the Springfield Development Code shall be amended to reference Springfield Comprehensive Plan Urbanization Element Policy 30. This plan does not address facilities and services provided by Lane County51 the State of Oregon, or the Federal government, and does not preclude provision of those services within Springfield. The availability of key urban services is determined by Springfield and/or applicable public and private service providers at the time of the annexation request, based on a determination of existing and planned capacity, existing and proposed uses, and costs. The land use application process for annexation is described in the Springfield Development Code. If key urban services are not available to serve the site at the time the annexation request is made,the Code requires an Annexation Agreement to ensure that services will be provided in a timely manner. The Annexation Agreement states the terms, conditions, and obligations of the property owner and the service providers regardingthe fiscal and service impacts to Springfield associated with the annexation, provision of infrastructure, and future development of the property. URBAN HOLDING AREA — EMPLOYMENT DESIGNATION: REQUIRED PLAN AMENDMENT PROCEDURES TO DESIGNATE URBANIZABLE LAND FOR URBAN DEVELOPMENT BEFORE ANNEXATION & DEVELOPMENT APPROVAL Lands designated Urban Holding Area - Employment (UHA-E) require comprehensive plan amendments and may require facility plan amendments prior to their designation and bland use district for urban employment use. The policies and implementation strategies in this Urbanization Element describe Statewide Planning Goal requirements that must be addressed prior to approval of plan and zoning changes that allow the transition from urbanizable to urban on lands designated UHA-E. Specific policies and implementation strategies are listed under each Urbanization Planning Goal to identify the steps needed before land may be designated, zoned and annexed to permit development to occur. These steps ensure that ample opportunities for citizen involvement are provided through community refinement planning processes conducted at the district scale to establish employment land use designations, gland use districts, design and development standards, transportation systems and public facilities to meet and balance community and industry needs in the North Gateway and Mill Race Urban Holding Area - Employment Districts. Planning Requirements in Urban Holding Areas District, refinement plan or master plan approval is required prior to or concurrent with ' annexation of land designated Urban Holding Area- Employment as shown in Table 3. Urban 51 Lane County provides the following services on a county-wide basis:sheriff and corrections,criminal prosecution, parole and probation; elections; regional transportation; mental health and public health services;workforce assistance; animal services;and regional parks and facilities. 571Springfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 50 of 53 Holding Areas are zoned Agriculture- Urban Holding Area (AG) prior to plan amendment approval and prior to annexation. Table . . Holding City-initiated Planning Process Owner-initiated Planning Process 1. City prepares Plan Amendment to address all 1. Applicant submits request to City to initiate applicable Statewide Planning Goals (e.g. amendments to Transportation System Plan amended or new refinement plan or district plan), and Public Facilities and Services Plan, and Metro Plan and 2030-Springfield Comprehensive other city actions that may be required prior to Plan policies and Springfield Development Code plan amendment approval. standards. 2. City and Lane County approve Plan Amendment 2. Applicant prepares and submits Plan to amend Meer Plan and Springfield Amendment application to address all Comprehensive Plan Map. UHA-E designation is applicable Statewide Planning Goals, Metro replaced with employment plan designations (e.g. Plan and 24,30-Springfield Comprehensive Plan Employment, Employment Mixed Use, Campus policies, and Springfield Development Code Industrial, Industrial). AG land use district ZGRiag standards. Applicant proposes employment remains in effect until Master Plan and new land plan designations (e.g. Employment, use districts zoniagare approved. Employment Mixed Use, Campus Industrial, Industrial). 3. City prepares and approves Zoning Map 3. City and Lane County approve Plan Amendment to apply new zsniag-land use Amendment to amend Metro Plan and districts (e.g. Industrial, Campus Industrial, Springfield Comprehensive Plan. UHA-E Employment Mixed Use, Employment). Land is designation is replaced with employment plan planned and zoned and eligible for annexation. designations (e.g. Employment, Employment Mixed Use, Campus Industrial, Industrial). AG land use district zGniRg remains in effect until Master Plan and new land use districts zGRiag are approved. 4. Applicant prepares and submits Master Plan 4. Applicant prepares and submits Master and annexation applications with Plan with proposed land use district zoning demonstration of key urban service provision. and demonstration of key urban services provision. Applicant submits annexation application. 5. City approves Master Plan and annexation. 5. City approves Master Plan and Zoning Map Amendment and annexation. 6. Applicant submits Site Plan, Subdivision etc. 6, Applicant submits Site Plan, Subdivision Type II development applications. etc. Type II development applications. 581Urbanization Element Ordinance No. 6463 Exhibit A, Page 51 of 53 URBANIZATION ELEMENT GOALS, POLICIES & IMPLEMENTATION STRATEGIES The Springfield 2030 Urbanization Element Planning Goals express the desired community development outcomes and benefits the City aspires to achieve by planning and managing land in new growth areas before the land is annexed to become part of the City. The Springfield 2030 Urbanization Element Policies and Implementation Strategies are the City's agreements and commitments to manage urban growth in ways that provide and sustain a healthy, prosperous and equitable environment aligned with Springfield's interests, values and assets. The adopted policy statements and implementation strategies in this plan provide a consistent course of action, moving the community toward attainment of its goals. Some policies and strategies call for immediate action; others require additional studies or community planning processes to develop more detailed or specific area plans or policy updates. Promote compact, orderly and efficient urban development by guiding future growth to vacant sites and redevelopment areas within the established areas of the city and to urbanize lands where future annexation and development may occur. 1. Urbanizable lands within the 2030 UGB shall be converted to urban uses as shown in the Springfield Comprehensive Plan Map M849 °'an Diagram and as more particularly described in neighborhood refinement plans, other applicable area-specific plans, and the policies of this Plan. 2. Continue to support and facilitate redevelopment and efficient urbanization through City- initiated area-specific refinement planning and zoning amendments consistent with the policies of this Plan. Plans shall designate an adequate and competitive supply of land to facilitate short-term and long-term redevelopment activity. Efficiency measures achieved through plan amendments may be reflected in land supply calculations to the extent that they are likely to increase capacity of land suitable and available to meet identified needs during the relevant planning period. A Continue to provide public policy and financial support when possible for redevelopment in Springfield. Continue to prioritize and incentivize redevelopment in the Glenwood and Downtown urban renewal districts and support redevelopment throughout the City as described in the Economic and Residential Elements of this Plan. ■ Continue to provide development tools and incentives (such as Urban Renewal support)within targeted priority redevelopment areas as resources become available to facilitate expedient and economically feasible redevelopment. 591Springfield Comprehensive Plan Ordinance No. 6463 Exhibit A, Page 52 of 53 Continue to conduct focused planning in key redevelopment areas, as directed by the City Council, as resources are available. Such efforts will review, update and supersede existing refinement plan designations and policies. Identify and include public agencies and private stakeholder partners in district- specific planning efforts to facilitate redevelopment through partnerships and other cooperative relationships. Any development taking place within the City's urbanizable area shall be designed to the development standards of the Springfield Development Code. Policies: Development within the Urban Holding Area- Employment Designation 4. Urbanizable lands added to Springfield's acknowledged UGB by Ordinance No. 6361 (adopted December 5 and 6, 2016, acknowledged 2019)to meet employment needs are designated "Urban Holding Area-Employment" (UHA-E) in the Metro Plan consistent with the employment site needs criteria for their inclusion in the UGB.52 The UHA-E designation reserves employment sites within urbanizable areas of 50 or more suitable acres to support creation of economic districts that will accommodate the site needs of target employment sectors. The size of employment districts and parcels of urbanizable land designated UHA-E shall be of adequate dimension so as to maximize the utility of the land resource and enable the logical and efficient extension of infrastructure to serve the North Gateway or Mill Race urbanizable area. b. Lands designated UHA-E are planned and zoned for the primary purpose of reserving an adequate inventory of large employment sites that is well located and viable for industry and not easily replicable elsewhere for employment uses that generate: A significant capital investment; Job creation within—but not limited to—targeted industry sectors, business clusters and traded-sector industries identified in the most recent economic opportunities analysis and Economic Element policies of this Plan. 6. Lands designated "Urban Holding Area-Employment" are zoned "Agriculture - Urban Holding Area" (AG) on the Springfield Zoning Map and are subject to the development standards of the Springfield Development Code AG Land Use District. For lots/parcels greater than 50 acres in the North Gateway UHA-E District,the minimum lot/parcel size for land division is 50 acres. Land divisions that create lots/parcels for the 52 ORS 285A.010(9) Ordinance No. 6463 601Urbanization Element Exhibit A, Page 53 of 53 purpose of establishing a Natural Resource or Public Land/Semi P u"i'^ Dora^ and Open Space designation within the floodway, wetland or riparian resource portions of the site may create lots/parcels less than 50 acres within the Natural Resource or Public Land and Open Space designation portion of the parent lot/parcel. Lots/parcels created and designated for employment purposes shall retain the 50-acre minimum until planned and zoned to allow annexation and site development with urban employment uses and densities consistent with the policies of this Plan. For lots/parcels less than 50 acres in the North Gateway and Mill Race UHA-E Districts, the minimum lot/parcel size for land division is 20 acres. Land divisions that create lots/parcels for the purpose of establishing a Natural Resource or Public Land;Cow Parks and Open Space designation within the floodway, wetland or riparian resource portions of the site may create lots/parcels less than 20 acres within the Natural Resource or Public Land/Sem' P bl'^ Parks and Open Space designation portion of the lot/parcel. Lots/parcels created and designated for employment purposes shall retain the 20-acre minimum until planned and zoned to allow annexation and site development with urban employment uses and densities consistent with the policies of this Plan. As directed by the City Council,the City will conduct comprehensive planning processes and adopt refinement-level plans and implementation measures to guide and regulate urban development in the North Gateway and Mill Race UHA-E districts. The Transportation Planning Rule requirements under OAR 660-012-0060 will be addressed prior to any re- designation or zoning map amendment that allows urbanization. Refinement Plans, District Plans, Master Plans and gland use districts for land within the UHA-E designation shall support cohesive design and development of innovative Employment districts that provide attractive sites for economic development in convenient proximity to natural and recreational amenities and infrastructure systems designed to integrate and protect water quality, Springfield's Drinking Water Source Areas, riparian, wetland and groundwater resources, aquifer recharge, and floodplain functions with compatible employment uses. Plan and zone land within the UHA-E designation to provide suitable employment sites 20 acres and larger to accommodate clean manufacturing53 uses and office/tech/flex employers in Springfield's target industry sectors. Limited neighborhood-scale retail uses that primarily serve employees within an industrial or office building or complex may be permitted as a secondary element within employment mixed-use zones. Urban Holding Area-Employment (UHA- E) sites shall not be re-designated or zoned to permit development of regional retail commercial uses. 53 For the purposes of this policy, "clean"is defined as land uses,construction practices,and business operations that minimize waste and environmental impacts,and that contribute to a safe, healthy,and clean community, maintain the ' aquifer recharge capacity of the site by reducing impervious surfaces,and protect Springfield's drinking water source areas from contamination. Ordinance No. 6463 61 1 S p r i n g f i e I d Comprerieiio , ve r- ia (I Exhibit B, Page 1 of 11 Exhibit B Eugene-Springfield Metropolitan Area General Plan (Metro Plan) Amendments The amendments to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan) are to replace the text in Metro Plan Chapter II-G (Metro Plan Diagram) and the plan designations shown on the Metro Plan Diagram for lands within the Springfield Urban Growth Boundary by adopting a Springfield Comprehensive Plan Map and Land Use Element of the Springfield Comprehensive Plan, and amending additional Metro Plan text for consistency with the Land Use Element of the Springfield Comprehensive Plan. The amendments are shown in track changes on the following pages and include: • Preface (page v) • Chapter I. Introduction (pages 1-3 to 1-6) o Use of the Metro Plan o Relationship to Other Plans, Policies, and Reports • Chapter 11. Fundamental Principles and Growth Management Policy Framework o G. Metro Plan Diagram — pages II-G-1 and II-G-16 • Chapter III. Specific Elements o D. Willamette River Greenway, River Corridors, and Waterways Element— footnote on III-D-1 and 2 • Chapter V— Glossary (page V-3) Ordinance No. 6463 Exhibit B, Page 2 of 11 Springfield's Comprehensive Plan Springfield has begun a series of Metro Plan amendments to create a city-specific comprehensive plan. In 2011, the City of Springfield and Lane County adopted the Springfield 2030 Residential Land Use and Housing Element and established a separate UGB for Springfield pursuant to ORS 197.304 (Springfield Ordinance No. 6268 and Lane County Ordinance No. PA 1274)_In 2014, the City of Springfield 2035 Transportation System Plan was adopted to serve as Springfield's local Transportation System Plan(Springfield Ordinance No. 6314 and Lane County Ordinance No. PA 1303). In 2016,the Metro Plan was amended to reflect adoption of the Economic and Urbanization Elements and expansion of the Springfield UGB and Metro Plan Boundary to designate land for employment, public facilities, parks and open space, and natural resources (Springfield Ord. 6361 and Lane County Ord. PA 1304). The Metro Plan was amended to reflect adoption of the Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map, which replaces the text in the Metro Plan Diagram Chapter II-G and removes the plan designations shown on the Metro Plan Diagram for areas within Springfield's ield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07). v Ordinance No. 6463 Exhibit B, Page 3 of 11 4. Provides the public with general guidelines for individual planning decisions. Reference to supplemental planning documents of a more localized scope, including neighborhood refinement plans,is advisable when applying the Metro Plan to specific parcels of land or individual tax lots. 5. Assists citizens in measuring the progress of the community and its officials in achieving the Metro Plan's goals and objectives. 6. Provides continuity in the planning process over an extended period of time. 7. Establishes a means for consistent and coordinated planning decisions by all public agencies and across jurisdictional lines. 8. Serves as a general planning framework to be augmented, as needed,by more detailed planning programs to meet the specific needs of the various local governments. 9. Provides a basis for public decisions for specific issues when it is clear that the Metro Plan serves as the sole planning document on the issue and that it contains a sufficient level of information and policy direction. 10. Recognizes the social and economic effects of physical planning policies and decisions. 11. Identifies the major transportation, wastewater, stormwater, and water projects needed to serve future UGB populations. Use of the Metro Plan The Metro Plan is a policy document intended to provide the three jurisdictions and other agencies and districts with a coordinated guide for change over a long period of time. Throughout the Metro Plan, there may be statements indicating that certain provisions are inapplicable to a jurisdiction because that jurisdiction has replaced those Metro Plan provisions with local plan provisions. The major components of this policy document are: the written text, which includes goals, objectives,findings, and policies; the Metro Plan Diagram; and other supporting materials. These terms are defined below: • A goal is a broad statement of philosophy of the jurisdictions to which the goal applies. A goal describes the hopes of the people of the community for the future of the community. A goal may never be completely attainable,but is used as a point to strive for. • An objective is an attainable target that the jurisdictions to which the objective applies attempt to reach in striving to meet a goal. An objective may also be considered as an intermediate point that will help fulfill the overall goal. I-3 Ordinance No. 6463 Exhibit B, Page 4 of 11 • A finding is a factual statement resulting from investigation, analysis, or observation regarding the jurisdictions to which the finding applies. • An assumption is a position,projection, or conclusion considered to be reasonable. Assumptions differ from findings in that they are not known facts. • A policy is a statement adopted as part of the Metro Plan to provide a consistent course of action for the jurisdictions to which the policy applies, moving the community toward attainment of its goals. • The Metro Plan Diagram is a graphic depiction of. (a) the broad allocation of projected land use needs; and(b) goals, objectives, and policies embodied in the text of the Metro Plan. The Metro Plan Diagram depicts land use designations, the cities' urban growth boundaries,the Metro Plan Plan Boundary (Plan Boundary), and major transportation corridors.4 The revised goals, objectives, and policies contained in this Metro Plan are not presented in any particular order of importance. The respective jurisdictions recognize that there are apparent conflicts and inconsistencies between and among some goals and policies. When making decisions based on the Metro Plan,not all of the goals and policies can be met to the same degree in every instance. Use of the Metro Plan requires a balancing of its various components on a case-by-case basis, as well as a selection of those goals, objectives, and policies most pertinent to the issue at hand. The policies in the Metro Plan vary in their scope and implications. Some call for immediate action; others call for lengthy study aimed at developing more specific policies later on; and still others suggest or take the form of policy statements. The common theme of all the policies is acceptance of them as suitable approaches toward problem-solving and goal realization. Other valid approaches may exist and may at any time be included in the Metro Plan through plan amendment procedures. Adoption of the Metro Plan does not necessarily commit the jurisdictions to immediately carry out each policy to the letter,but does put them on record as having recognized the validity of the policies and the decisions or actions they imply. The jurisdictions can then begin to carry out the policies to the best of their ability, given sufficient time and resources. In addition, it is important to recognize that the written text of the Metro Plan takes precedence over the Metro Plan Diagram where apparent conflicts or inconsistencies exist. The Metro Plan Diagram is a generalized map which is intended to graphically reflect the broad goals, objectives, and policies. As such, it cannot be used independently from or take precedence over the written portion of the Metro Plan. 4 The Springfield Comprehensive Plan Map replaces the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024(Springfield Ordinance No.XXXX,and Lane County Ordinance No.PA 1390 and Ordinance No.23-07). I-4 Ordinance No. 6463 Exhibit B, Page 5 of 11 The degree to which the Metro Plan provides sufficient detail to meet the needs of each jurisdiction will have to be determined by the respective jurisdictions. Where conflicts exist among the Metro Plan,local comprehensive plans,refinement plans, and existing zoning, each jurisdiction will have to establish its own schedule for bringing the zoning and refinement plans into conformance with the Metro Plan or the applicable local comprehensive plan. It is recognized that the needs,priorities, and resources vary with each jurisdiction and that the methods and timing used to implement the Metro Plan or to conduct city-specific comprehensive planning will also vary. Relationship to Other Plans, Policies, and Reports The Metro Plan is the basic guiding land use policy document for regional land use planning. As indicated in the Purpose section, above, the region also utilizes: (a) city-wide comprehensive plans; (b) functional plans and policies addressing single subjects throughout the area, including the Eugene-Springfield Public Facilities and Services Plan (Public Facilities and Services Plan) and the regional transportation system plan; and(c)neighborhood plans or special area studies that address those issues that are unique to a specific geographical area. In all cases, the Metro Plan is the guiding document for regional comprehensive land use planning and city-specific plans may be adopted for local comprehensive land use planning. Refinement plans and policies must be consistent with applicable provisions in the Metro Plan or the applicable local comprehensive plan. Should inconsistencies occur, the applicable comprehensive plan is the prevailing policy document. The process for reviewing and adopting refinement plans is outlined in Chapter IV. The following Metro Plan appendices are available at Lane Council of Governments (LCOG): Appendix A Public Facility Plan Project Lists and Maps for Water, Stormwater, Wastewater, Electricity, and Transportation [These lists and maps are located in Chapter II of the 2001 Eugene-Springfield Metropolitan Area Public Facilities and Services Plan and 2001 Eugene-Springfield Metropolitan Area Transportation Plan (TransPlan)] Appendix B List of Refinement and Functional Plans and Map of Refinement Plan Boundaries Appendix C List of Exceptions and Maps of Site-Specific Exception Area Boundaries Appendix D Auxiliary Maps showing the following: Fire station locations Urban growth boundary Greenway boundary Schools Parks The following Metro Plan appendix is available at the City of Eugene Planning and Development Department: Appendix E Eugene 2035 Transportation System Plan I-5 Ordinance No. 6463 Exhibit B, Page 6 of 11 Relationship to Lane County Rural Comprehensive Plan The Plan Boundary shown on the Metro Plan Diagram in Chapter 11 is adjacent to the boundaries of the Lane County Rural Comprehensive Plan that surround the Eugene-Springfield metropolitan area. The Metro Plan Boundary on the east side of I-5 is coterminous with the Springfield UGB. There is no overlap between the boundaries of the Metro Plan and the Lane County Rural Comprehensive Plan. Lane Code Chapter 16 is applied in the area between the UGB and the Plan Boundary to implement the Metro Plan. Adjustments to boundaries may occur in the future so that areas previously a part of one plan are covered under another plan. These adjustments may occur using the Metro Plan review and amendment procedures described in Chapter IV. Relationship to Statewide Planning Goals The Metro Plan has been developed in accordance with the statewide planning goals adopted by the Oregon Land Conservation and Development Commission (LCDC). These goals provide the standards and set the framework for the planning programs of all governmental agencies and bodies in the metropolitan area. Through the Metro Plan and the jurisdictions' own land use plans, the cities and county address the applicable LCDC goals (as well as local goals). In response to the statutorily mandated adoption of separate urban growth boundaries for Eugene and Springfield, each city will independently address some of the statewide planning goals in their city-specific plans. For example, each city will provide the type and quantity of land needed to support its own population as required by Statewide Planning Goals 9 (Employment), 10 (Housing) and 14(Urbanization). General Assumptions and Findings The following general assumptions and findings relate to the entire Metro Plan. They are included in the Introduction because of their general application. General Assumptions5 1. A population of 286,000 is expected to reside within the metropolitan UGB by the year 2015. This is a 29 percent increase from the estimated 2000 census population of 222,500. Since this Metro Plan is designed to accommodate the expected population rather than remain static until 2015, it can be adjusted periodically as changes in population trends are detected. 2. Based on recent trends,the rate of population growth and the rate of in-migration are projected to decrease. s These General Assumptions no longer apply within Springfield's UGB(east of Interstate 5)as a result of Springfield's establishment of its separate UGB and 20-year supply of residential land. Springfield Ordinance No. 6268(June 20,2011),-Lane County Ordinance No.PA 1274(July 6,2011). I-6 Ordinance No. 6463 Exhibit B, Page 7 of 11 G. Metro Plan DiagramL,, The Metro Plan Diagram is a generalized map and graphic expression of the goals, objectives, and recommendations expressed in the applicable provisions of the Metro Plan and city-specific plans. Rather than an accurate representation of actual size and shape, the arrangement of existing and, to an even greater degree, projected land uses illustrated on the Metro Plan Diagram, is based on the various elements and principles embodied in the Metro Plan and city- specific plans. Likewise, statements in this section that prescribe specific courses of action regarding the community's future should be regarded as policies. Projections indicated a population of approximately 286,000 was expected to reside in the metropolitan area around the year 2015. The allocation of living,working, and recreational areas and supporting public facilities that were shown on the Metro Plan Diagram when the 2004 Metro Plan Update was conducted and on the Public Facilities Maps in Appendix A generally responded to that metro-wide projection. After Springfield and Eugene have (pursuant to ORS 197.304 (2007)) established their separate city-specific UGBs and designated land supplies for their new 20-year planning horizons,the Metro Plan Diagram will be bifurcated. The area shown east of Interstate 5 will represent the land use needs and supporting facilities necessary to serve Springfield's future population. The area shown west of Interstate 5 within the UGB will represent the land use needs and supporting facilities necessary to serve Eugene's future population. Until both cities, with co-adoption by Lane County, have taken action to establish their independent UGBs and land supplies,the Metro Plan Diagram will serve different purposes for the two cities." Finally, the Metro Plan Diagram is drawn at a metropolitan scale,necessitating supplementary planning on a local level. The original Metro Plan Diagram adopted in the 1982 Metro Plan and subsequently amended was not tax lot-specific, although exception areas were site specific,with exact designation boundaries shown in supporting working papers. The use of the Regional Land Information Database (RLID) data for long-range planning studies led to the decision to base the Metro Plan Diagram on RLID data, as described below. The Metro Plan Diagram and text provide the overall framework within which more detailed planning occurs on the local level. In practice, the Metro Plan amendment process described in Chapter IV will ensure that issues of metropolitan significance are addressed cooperatively by all three jurisdictions. Major Influences 10 The Metro Plan was amended to reflect adoption of the Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map,which replaces the text in this Chapter and removes the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary.These amendments were adopted by pringfield City Council in 2023 and the Lane County Board of Commissioners in 2024(Springfield Ordinance No.XXXX,and Lane County Ordinance No.PA 1390 and Ordinance No.23-07). 11 As part of the adoption of the City of Springfield's city-specific UGB (through Springfield Ordinance No. 6268 and Lane County Ordinance No.PA 1274 in 2011,the Metro Plan Diagram was amended so that the area west of Interstate 5 is no longer included in Springfield's UGB. In 2017,the area included in the City of Eugene's UGB (the area west of Interstate 5)was expanded(through Eugene Ordinance No.20584 and Lane County Ordinance No. PA 1345). II-G-1 Ordinance No. 6463 Exhibit B, Page 8 of 11 Insert Metro Plan Diagram= Amend the Metro Plan Diagram to no longer show plan designations within the Springfield UGB (i.e. Metro Plan Boundary east of I-5) and add a note to the Diagram: "The Metro Plan was amended to reflect adoption of the Springfield Comprehensive Plan Map, which replaces the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City_ Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07). Insert Metro Plan Boundaries Map II-G-16 Ordinance No. 6463 Exhibit B, Page 9 of 11 A Willamette River Greenway, River Corridors, and Waterways Element The Willamette River has long been recognized in the Eugene-Springfield area as a valuable natural asset. A number of policy documents and programs adopted by local jurisdictions have reinforced the community concern to preserve and protect metropolitan river corridors. On December 6, 1975, the Land Conservation and Development Commission (LCDC) adopted Statewide Planning Goal 15: Willamette River Greenway. The goal sets forth the overall framework within which state and local governments carry out protection and maintenance of the Willamette River Greenway. The goal requires Eugene, Springfield, and Lane County to adopt Greenway boundaries,to specify uses permitted within those boundaries, and indicate areas of potential acquisition along the Greenway. In making these determinations, local jurisdictions must gather information and inventory the nature and extent of all natural resources associated with the Willamette River Greenway. Local jurisdictions are also mandated to adopt provisions, by ordinance, requiring a compatibility review permit for any intensification, change of use, or development within Greenway boundaries. The jurisdictional area of the Metro Plan (i.e., Metro Plan Boundary) was found to be in compliance with Goal 15 on September 12, 1982. In the metropolitan area, a large portion of land within the Greenway is in public ownership or public parks such as Mount Pisgah, Skinner's Butte,Alton Baker, and Island Park. Future proposed park acquisitions, such as the Goodpasture Island gravel ponds, will further expand the opportunity for public access and enjoyment of the river area. The three jurisdictions cooperated in the development of a bicycle-pedestrian trail system that extends along the Greenway from south of Springfield to north of Eugene and into the River Road area. This system includes five bike bridges across the river. Land along the Greenway in private ownership is in a variety of uses, some of which appear to provide greater opportunity than others for public access and enjoyment. Residential uses along the Greenway can provide the residents with access to the river area. Certain commercial uses, such as restaurants, can allow customers visual enjoyment of the Greenway. Other uses, such as the many industrial uses,would appear to provide little if any opportunity for access or enjoyment of the Greenway. This is evidenced by much of the existing industrial development along the Willamette River in the Glenwood area. Finally, in rural agricultural areas, isolated access points can work to the detriment of the Greenway program. In these areas, trespass and vandalism can cause a detraction in the general Greenway environment and create problems for private landowners. III-D-1 Ordinance No. 6463 Exhibit B, Page 10 of 11 The Greenway boundaries, as adopted by the three jurisdictions,have been digitized in the Regional Land Information Database (RLID) and are shown as an overlay on Plan Diagram.27 Future acquisition areas and uses allowed within the Greenway remain the primary responsibility of the local jurisdictions. This element, however, provides the basis for a coordinated effort by Eugene, Springfield, and Lane County. The statewide Greenway goal specifically applies to the Willamette River. In the Eugene- Springfield area, portions of the McKenzie River share equal importance as a natural resource worthy of conservation and protection. Additionally, the metropolitan network of waterways and associated creeks and drainageways are important features in the metropolitan area,with potential as part of an areawide waterways system. For that reason, while this element must specifically cover the Willamette River Greenway,it is important to consider the McKenzie River, where it is situated within the area of the Metro Plan and the inland system of waterway corridors connecting various parts of Springfield, Eugene, and Lane County to one another. Goal To protect, conserve, and enhance the natural, scenic, environmental, and economic qualities of river and waterway corridors. Findings, Objectives, and Policies Findings 1. The Willamette and McKenzie Rivers are recognized as valuable natural assets to the entire community. 2. In addition to the Willamette and McKenzie Rivers, a number of waterways are important environmental features in the metropolitan area. These include, for example, the Springfield Millrace, Amazon Creek, Fern Ridge Reservoir, and the Eugene Millrace. 3. Recently, the community has begun to realize the potential of inland waterway corridors to contribute to the livability of the area. 4. In addition to its significance to agriculture, flood control, and fish and wildlife, Fern Ridge Reservoir continues to grow in importance as a recreational water facility. 5. Statewide Planning Goal 15 mandates local governments to establish the Greenway boundaries, allowed uses within the Greenway and potential acquisition areas. 27 The Metro Plan was amended to reflect adoption of the Springfield Comprehensive Plan Map,which replaces the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary (UGB).These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024(Springfield Ordinance No.XXXX,and Lane County Ordinance No.PA 1390 and Ordinance No. 23-07). The Springfield Comprehensive Plan Map shows the portion of the Willamette River Greenway boundary within the Springfield UGB and in portions of Lane County just south of the Springfield UGB in order to show the extent of the boundary on both sides of the Willamette River. III-D-2 Ordinance No. 6463 Exhibit B, Page 11 of 11 24. Kgy urban facilities and services: Minimum level: Wastewater service, stormwater service, transportation, solid waste management, water service, fire and emergency medical services,police protection, city- wide parks and recreation programs, electric service, land use controls, communication facilities, and public schools on a district-wide basis (in other words, not necessarily within walking distance of all students served). Full range: The minimum level of key urban facilities and services plus urban public transit,natural gas, street lighting, libraries, local parks, local recreation facilities and services, and health services. 25. Low-income housing: Housing priced so that a household at or below 80 percent of median income pays no more than 30 percent of its total gross household income on housing and utilities. (HUD's figure for 1997 annual 80 percent of median income for a family of three in Lane County is $27,150; 30 percent= $687/month.) 26. Manufactured dwelling: A structure constructed at an assembly plant and moved to a space in a manufactured dwelling park or a lot. The structure has sleeping, cooking, and plumbing facilities and is intended for residential purposes. 27. Manufactured dwelling park: Any place where four or more manufactured dwellings are located within 500 feet of one another on a lot,tract, or parcel of land under the same ownership,the primary purpose of which is to rent or lease space. 28. Metro Plan Plan Boundary: Defines that area shown on the Metro Plan Diagram that includes Springfield, Eugene, and unincorporated urban, urbanizable, rural, and agricultural lands exclusive of areas encompassed in the Lane County Rural Comprehensive Plan. The Metro Plan Boundary on the east side of I-5 is coterminous with the Springfield urban growth boundary.-(Note: Assumes boundaries between the area of the Metro Plan and the Lane County Rural Comprehensive Plan will coincide.) 29. Metro Plan Diagram: A graphic depiction in the Metro Plan of: (a)the Metro Plan Boundary (Plan Boundary); (b)urban growth boundaries; and(c)the land uses planned for the EEu ene ff e4epe4t area, as described in Metro Plan Chapter II-G.34 30. Metropolitan area: Generally, an area that includes and surrounds a city or group of cities. The Eugene-Springfield metropolitan area is the area within the Metro Plan Plan Boundary (Plan Boundary). 34 The Springfield Comprehensive Plan Map replaces the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary (UGB). These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024(Springfield Ordinance No.XXXX,and Lane County Ordinance No.PA 1390 and Ordinance No. 23-07). The Metro Plan Diagram will continue to show the Metro Plan Boundary and Springfield UGB. The Springfield Comprehensive Plan Map will show plan designations within the Springfield UGB and will also show the Springfield UGB. V-3 Ordinance No. 6463 Exhibit C, Page 1 of 33 Exhibit Neighborhood Refinement Plan Amendments for Co-adoption Gateway Refinement Plan: • Replace the Parks and Open Space designation with a Public Land and Open Space designation, as shown on the Refinement Plan Diagrams in Exhibit A • Apply Nodal Development as an overlay where shown on the Metro Plan Diagram, as shown on the Refinement Plan Diagrams in Exhibit A • Replace the Parks and Open Space designation with Public Land and Open Space, as shown in track changes on the following pages • Replace reference to the Metro Plan Diagram with reference to the Springfield Comprehensive Plan Map and replace reference to the Metro Plan text with reference to the Springfield Comprehensive Plan, as shown in track changes on the following pages • Add text referencing the Springfield Comprehensive Plan to make the distinction between the Metro Plan and/or relationship to refinement plans, as shown in track changes on the following pages Glenwood Refinement Plans (1999 and 2014 plan update): • Replace the Public Land and Parks and Open Space designations with a Public Land and Open Space designation, as shown on the Refinement Plan Diagrams in Exhibit A • Replace the public/semi-public references and Public/Semi-Public designation with a Public Land and Open Space designation, as shown in track changes on the following pages • Remove reference to the Metro Plan Diagram or replace with reference to the Springfield Comprehensive Plan Map, as shown in track changes on the following pages • Replace reference to the Metro Plan text with reference to the Springfield Comprehensive Plan, as shown in track changes on the following pages • Add text referencing the Springfield Comprehensive Plan to make the distinction between the Metro Plan and/or relationship to refinement plans, as shown in track changes on the following pages Ordinance No. 6463 Exhibit C, Page 2 of 33 GATEWAY REFINEMENT PLAN (Interim Printing June 2023) Prepared by: Development and Public Works Department City of Springfield SPRINGFIELD OREGON ADOPTION DATES: City of Springfield —October 19, 1992 Lane County —September 1, 1992 City of Eugene (Metro Plan Amendments Only) — November 9, 1992 TEXT AMENDMENT DATES: January 10, 2005 DIAGRAM AMENDMENT DATES: July 6, 1993 August 17, 1993 November 18, 1999 December 9, 2002 April 21, 2003 July 7, 2003 January 10, 2005 January 22, 2019 April 15, 2019 October 21, 2019 May 18, 2020 Ordinance No. 6463 Exhibit C, Page 3 of 33 GATEWAY REFINEMENT PLAN INTRODUCTION INTRODUCTION PURPOSE Reighborhood" refinerne.nt plaRs are developed to provide more SpeGifiG appliGation of Metro PlaR p0liGieS, and to provide ite SpeGifiG determination of Metro PIA-n 1A-nd- RefiRerneRt plans resolve aRy pre eXiStiRg G nfli t. h-P-tl.AAQ-P-.n IGGE31 ZE)RiRg distrir-,ts and- Metre PlaR deSigRatiORS. They also provide the C)PPE)rt6lRmty to examiRe, OR greater T" The Gateway Refinement Plan guides local development and decisions with land use policies addressing this area's specific issues and needs. The application of site-specific plan designations is based on findings of fact and clear criteria. Refinement Plan designations, policies, and implementation actions are designed to minimize the negative impacts of development on existing residential neighborhoods and natural resources, while facilitating development consistent with applicable comprehensive plans. PLAN RELATIONSHIPS TO OTHER PLANS NS The Refine-pneRt Plan Diagrarn is more speGifiG than the Metro PlaR Diagram. %A/hp-reas the Metrn- Plan Diagram is E)fa SGale that illustrates GRly geReral area desigRatiGRS, the RefiRernGRt PlaR Diagram provides site SpeGifiG land 616e d86mgRatiORS that sernetimeS Gever areas WE)small to appear OR the Metre PlaR D agrarn. Like all other elerneRts of the Gateway RefiRerneRt PlaR, the RefinP-MP-Rt PlaR Diagram must be ruen-sm-stent I.Mith t!— P.1-t.- Pl-R Diagram. UPOR adeptiGR (GORSOMP-0 Mimth the Metre Plan), the Gateway RefiRerneRt PIA-n shall be d-e-finitive iin rn kiRg Site SpeGifir, 'And 616e deGOSOORS. Land 616e d8GiGiGR6 made as a result of adE)ptm9R ef this PlaR shall be iRGGFpGrated iRt() MetFE) PlaR LA and publiG faruilities; for the Gateway area. The Gateway Refine-Mant Plan A-ISE-) 093 inteRded to provide GertaiRty for developers and- resid-e-nts throughout the 'And dPVPlGprneRt prGGess. The appliration nf site. SpeGifiG land 61se Metre PlaR, and with the gF()WiRg eGGRerniG develepmeRt Reeds of the greater rnetmpelitaR area GOrnmLARity. COMPREHENSIVE PLANS The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan amendment to establish a Springfield urban growth boundary and adopt a city-specific residential element (chapter). The City has since added more elements to the Springfield Comprehensive Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield urban growth boundary. Together,the Metro Plan and Springfield Comprehensive Plan serve as Springfield's applicable comprehensive plans. 1 Ordinance No. 6463 Exhibit C, Page 4 of 33 GATEWAY REFINEMENT PLAN INTRODUCTION Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield Comprehensive Plan. The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter 11-G and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07).The Springfield Comprehensive Plan Map includes the plan designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting amendments since the Refinement Plan's original adoption and some minor plan designation name changes is included prior to the Table of Contents in this document. The original Refinement Plan Diagram is retained on page 5 for historical reference. NEIGHBORHOOD REFINEMENT PLANS Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive Plan. Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate changes made through adoption of more recent plans. For example, adoption of Springfield's Transportation System Plan resulted in changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally prevails. PLANNING PROCESS Springfield began land use planning activities in 1968 with the development of the 1990 Plan, a metropolitan-wide long- range plan. Springfield grew rapidly between 1968 and 1982. During that time, Springfield conducted planning studies and continued participating in Metropolitan-level planning work in response to the 1975 adoption of Oregon's Statewide Planning Goals and Guidelines. The Eugene-Springfield Metropolitan Area General Plan (Metro Plan)was developed by Springfield, Eugene, and Lane County to replace the 1990 Plan, and was acknowledged by the Land Conservation and Development Commission (LCDC) in 1982 for compliance with the Statewide Goals and Guidelines. The Metro Plan was most recently updated in 1987, and it continues to undergo periodic review and updates to ensure that it reflects changing circumstances in the metropolitan area, and to ensure continued compliance with LCDC goals. (E.g., in 1990-91 the Natural Resources Special Study and the Industrial Lands Special Study were developed as updates to the Metro Plan.) The Metro Plan Update process, which was initiated in 1986, provides an overall review of the Metro Plan, including its findings, research, data, assumptions, and projections. The update process provides the mechanism for"re-evaluating and possibly changing or modifying basic concepts, goals, and policies." (Metro Plan, p. IV-5) As a result of the 1986-87 Update Process, the Metro Plan was amended and republished in 1987. The refinement planning process is provided by the Metro Plan as a means to address the special needs of specific geographical areas and/or special purpose or functional elements, "as determined appropriate by each governing body" (Metro Plan, p. IV-5). Springfield began its refinement planning program in the early 1980's, and had adopted neighborhood refinement plans covering several geographically defined areas throughout the City. The Gateway Refinement Plan is the first Springfield refinement plan that included land outside the City limits. Lane County and the City of Springfield entered into an urban transition agreement in 1986, which transferred planning and building jurisdiction in the urbanizable area to the City. Under this agreement, the City is responsible to plan for the future land use, facilities, and transportation needs of the area, based on the goals, policies, and projections of the metro plan. Lane County, however, must jointly adopt land use planning regulations that are to be applied in the urbanizable area. Adoption of this Refinement Plan was therefore contingent on approval by the elected officials of Lane County as well as the City of Springfield. This Refinement Plan also was reviewed by the City of Eugene. Metro Plan Diagram amendments, as well as amendments to the TransPlan and the Public Facilities Plan, proposed in association with this Refinement Plan, were adopted by all three jurisdictions. 2 Ordinance No. 6463 Exhibit C, Page 5 of 33 GATEWAY REFINEMENT PLAN Residential Element RESIDENTIAL ELEMENT INTRODUCTION The Residential Element of the Gateway Refinement Plan addresses lands within the Refinement Plan area that are residentially designated OR the Meer„ Plan Diagram It also addresses conditions that may warrant changes in Metre pRIan designations to reflect more appropriate uses (^^ncic+on+with Metro Plan+o +) or to acknowledge well- established, compatible residential uses consistent with the goals and policies of or comprehensive plans; Mihirh moo++he goals and nnlirioc of+ho nno+re Plan and which would otherwise be considered non-conforming. The purpose of this Element is to provide site-specific application of adopted Meer„ Dian residential aPA-6 icaplan designations, to resolve plan/zone conflicts, and to resolve land use conflicts as they relate to the livability of residential neighborhoods. This Element also is intended to implement the Metro Plan's "Residential Land Use and Housing Element" policies by providing policies to guide development of the remaining vacant residential land in the Refinement Plan area. Three residential 4apA-66 & plan designations are established on the Refinement Plan Diagram, i.e., Low Density Residential (LDR), Medium Density Residential (MDR), and High Density Residential (HDR). An overview and analysis of residentially-designated areas, an assessment of relevant land use issues, and the designation criteria used to assess the appropriateness of residential designations in potential conflict areas are included in the Residential Element of the GRP Technical Supplement. Findings,which support the residential policies, also are included in the Residential Element of the GRP Technical Supplement, and are divided into four sub-areas; 1) South Harlow Sub-areas; 2) Gateway Multi-Family Sub-areas; 3) Game Farm Single-Family Sub-areas; and 4) McKenzie- Gateway MDR Sub-areas. (See the "Residential Sub-areas" Map on page 18.) GOALS 1. Provide for a diversity of sound, affordable housing in the Refinement Plan area. 2. Ensure availability of adequate supplies of land appropriate for low-medium-, and high-density residential development, while allowing for an appropriate mix of commercial, employment, and residential uses. (Text amended by Ordinance No. 6109, adopted January 10, 2005.) 3. Achieve the gross densities allowed in the Metre Springfield Comprehensive Plan for LDR (up to 10 du/ rg oss acre), MDR (11-20 du/ rg oss acre), and HDR (21-30 du/ rg oss acre). Encourage optimization of densities, reducing the amount of underdeveloped land within the three categories in order to achieve the Metro Plan's overall target density (for all residential development in urbanized areas)of 6 du/acre. 4. Minimize potential conflicts between LDR, MDR and HDR uses, and between residential and other less intensive land uses. 5. Maintain and enhance the livability of Refinement Plan area neighborhoods. 6. Minimize adverse environmental impacts of residential development. Integrate identical natural assets into residential development planning to the maximum extent practicable. 7. Minimize the adverse impacts of public facilities on residential neighborhoods. 8. Ensure efficient and safe transportation systems in and around residential areas. Promote walking and bicycling as alternative modes of travel by providing pathway connections between residential areas and other important destinations. 9 Ordinance No. 6463 Exhibit C, Page 6 of 33 GATEWAY REFINEMENT PLAN Residential Element 9. Work on an incentive-based approach for acquisition or use of areas to be dedicated for recreational pathways and other public amenities. POLICIES AND IMPLEMENTATION ACTIONS 1.0 The City shall, through site plan review, home and neighborhood improvement programs, and/or other related programs, actively participate in efforts to maintain and enhance existing residential neighborhoods and attract compatible multi-family developments that would enhance the Gateway Refinement Plan area. 2.0 The City shall provide continued support for the Substantial Home, Rental Rehabilitation, and Emergency Minor Home Repair Programs, using Community Development Block Grant funds and/or other sources. 3.0 Mitigate negative impacts on the Beverly Park and Ken Ray subdivisions from the freeway traffic on 1-5. 3.1 Work with the appropriate agencies to establish a buffer planting of trees and shrubs in the open area between 1-5 and the Beverly Park and Ken Ray Park subdivisions. 4.0 Identify potential wetlands in the Clear Vue neighborhood, and improve pedestrian access to Guy Lee Park and School. 4.1 Require a wetlands assessment and delineation of Assessor's map 17-03-27-12, Tax Lot 4000, east of the Guy Lee Ash Forest, prior to granting development approval. Work with the property-owner, Willamalane and School District 19 to investigate the feasibility of including wetlands or potential wetlands in the demonstration wetland restoration project proposed in Policy 6.2 of the Natural Assets, Open Space/Scenic Areas, and Recreation Element. 4.2 Through the site plan review, partition, and subdivision processes, require easements as needed to establish pedestrian connections from the Lindale multi-family residential area to the east, through Clear Vue Lane neighborhood, to Guy Lee Park and School, especially along SCS Channel 6. 5.0 Resolve the existing plan/zone conflict at the Shady View PUD (see GRP Tech. Supp., Residential Element, Map 3, Area 5). 5.1 Rezone the Shady View PUD from MDR to LDR, consistent with the existing e-pP-Ian designation. 5.2 Existing and future developments on Assessor's map 17-03-27-12, lot#'s 1100, 1200, 1300, and 1400, in the Shady View PUD, shall not be considered non-conforming uses in terms of minimum lot size or maximum density requirements. 6.0 Resolve the existing plan/zone conflicts at the Lindale Street Multi-family Residential Area (see GRP Tech. Supp., Residential Element Map 3, Area 6). 7.0 Recognize the suitability of Assessor's map 17-03-27-12, tax lot#500 (Sampson property; GRP Tech. Supp., Residential Element Map 3, Area 7) for HDR development. 7.1 Redesignate and rezone Assessor's Map 17-03-27-12, tax lot#500 to HDR. 8.0 Resolve the existing plan/zone conflict at the southwest quadrant of the Game Farm/Harlow intersection. 8.1 Rezone Assessor's map 17-03-22-44, tax lot#7200 from HDR to MDR, consistent with its existing tie--pP-lan Designation. 10 Ordinance No. 6463 Exhibit C, Page 7 of 33 GATEWAY REFINEMENT PLAN Residential Element 9.0 Recognize the suitability of GO zoning at the McKenzie-Willamette site, and at the adjacent Evans and Dilts properties (see GRP Tech. Supp., Residential Element Map 3, Areas 9, and 10), while mitigating negative impacts on the neighboring uses from future GO development. 9.1 Consistent with applicable goals and policies of the Metro Plan and of this Refinement Plan, and with the intent of the GO District, GO zoning at the MDR-designated McKenzie-Willamette site, and at the Evans and Dilts properties, shall not be considered a plan/zone conflict. 9.2 Redesignate the Evans and Silts properties (Assessor's map 17-03-27-22, tax lot#'s 300 and 200) from LDR to MDR. 9.3 Rezone the Evans and Dilts properties from LDR to GO. These two properties shall be exempt from the 1-acre minimum development area standard established in the SDC for the GO District. 9.4 Through the site plan review process, require a landscaped from yard setback of 10 feet at the McKenzie-Willamette site. Encourage the special treatment of the Harlow Road frontage to enhance the visual quality of this entry to the City. 9.5 Through the site plan review process, require a 15-foot landscaped setback from GO-zoned sites property lines adjacent to residential areas to the south. Pay special attention to the need to buffer the adjacent residential area from potential negative impacts from the proposed medical services center. 9.6 Require a development Area Plan (DAP)for the entire McKenzie-Willamette site prior to development approval for any portion. 9.7 Coordinate with McKenzie-Willamette Hospital, as well as with Guy Lee School, School District 19, the Guy Lee PTA, and affected property owners, when planning for the placement and construction of the possible future pedestrian overpass at Guy Lee School. 9.8 Through the site plan review process, require a detailed traffic impact study in connection with future GO development, with special attention to potential traffic impacts at the Guy Lee School crossing at the Harlow/Hartman intersection. 9.9 Through the site plan review process, pay close attention to visibility of the Harlow Road/Hartman Lane intersection to maximize safety at the Guy Lee School crossing. 10.0 Improve access to the Granada Subdivision and to the undeveloped MDR-designated land between Harlow Road and Oakdale Street, while addressing concerns regarding pedestrian safety at the Harlow/Hartman school crossing. (See GRP Tech. Supp., Residential Element Map 4.) 10.1 Through the site plan review, partition, and subdivision processes, consider the need for requiring improvement agreements and dedication of rights-of-way to provide access to the development area and adjacent Granada Subdivision. 10.2 Require traffic impact studies in connection with development planning for the McKenzie- Willamette site and the undeveloped MDR-designated land between Harlow and Oakdale. These studies shall address concerns regarding pedestrian safety at the Harlow-Hartman school crossing. 11.0 Recognize that the vacant 5-acre site (the northerly 5 acres of Assessor's map 17-03-22, tax lot#2600) on Pheasant Boulevard, north of Harlow Road, has limited capability for development at HDR densities and that it is more suitable for MDR development. Protect LDR uses to the north from potential negative impacts resulting from such MDR development. (See GRP Tech. Supp., Residential Element Map 4, area 2.) 11.1 Redesignate and rezone the northerly 5-acres of Assessor's map 17-03-22, tax lot#2600 from HDR to MDR. 11 Ordinance No. 6463 Exhibit C, Page 8 of 33 GATEWAY REFINEMENT PLAN Residential Element 11.2 Through the site plan review process, require improvements agreements and dedication of right- of-way for the Oakdale extension, in a manner consistent with the policies of the Transportation Element of this Refinement Plan, prior to development approval. 11.3 Through the site plan review process, pay special attention to buffering the adjacent LDR uses from potential negative impacts and to protecting their solar access, as well as to minimizing land use conflicts between proposed MDR development and existing or future CC development to the south. 12.0 Allow rezoning of land within the "McKenzie-Gateway MDR site"to Medical Services ("MS")on land designated Community Commercial or Mixed Use ^n the Metro Plan diagram and rezoning to Mixed Use Commercial ("MUC")on land designated Mixed Use ^n the nno+rn- Dion diagrar„ as implemented during Master Plan and/or during the City's nodal implementation project. (Text amended by Ordinance No. 6109, adopted January 10, 2005.) 12.1 Redesignation of a total of 99 acres land within the city limits at the McKenzie/Gateway MDR site to Community Commercial and/or Mixed Use through the Metro Plan amendment process shall be allowed-and shall be implemented by application of Mixed Use Commercial ("MUC")or Medical Services ("MS")zoning district through the Master Plan approval and/or during the City's nodal implementation project. (Text amended by Ordinance No. 6109, adopted January 10, 2005.) 12.2 Rezoning to NC shall be allowed for the following historic houses, and up to .3 acre of the associated property (these re-zonings shall be exempt from the 3-acre maximum area specified in policy 12.1): Stowbridge House, 203 Deadmond Ferry Road, (c. 1930); Conley Farm House, 3345 Game Farm Road (c. 1920) un-named house at 273 Deadmond Ferry Road (c. 1925). The following provisions shall apply: a) Re-zoning of these properties shall occur automatically upon approval (under Type II procedure) of a site plan for the properties listed in 12.2. b) City landmark status shall be applied, in all cases, in conjunction with rezoning of the properties identified in 12.2, and future expansion or remodeling shall comply with all provisions of SDC Article 30 [now Section 3.3.900]. c) Development Area Plan requirements are waived for approved NC uses in historic structures. 12.3 Rezoning of the properties specified above shall not preclude maintenance of a residence at the site (i.e., a residential use shall not be considered non-conforming with NC zoning applied at any of the historic resource sites). 12.4 In addition to all applicable standards and provisions regulating development in Springfield, any development adjacent to the McKenzie River or McKenzie River riparian setback shall provide public access to the McKenzie River or McKenzie River riparian setback. Surface parking areas shall not be visible from the McKenzie River corridor and shall be screened from public streets. (Text amended by Ordinance No. 6109, adopted January 10, 2005.) 12.5 MU districts within the McKenzie-Gateway MDR Site shall meet the provisions of SDC Article 40 [now Section 3.2.600]. (Text amended by Ordinance No. 6109, adopted January 10, 2005.) 12.6 Within the city limits at the McKenzie-Gateway MDR Subarea,the Medical Services ("MS") zoning district shall implement the Community Commercial designation if part of an approved Master Plan for development of a major medical facility. The adopted Master Plan shall demonstrate that the subject property will be able to accommodate the number of housing units within the range for the MDR land use designation in the Metro Plan and Gateway Refinement Plan. In addition to meeting the standards of the SDC, at the time of Master Plan approval,the 12 Ordinance No. 6463 Exhibit C, Page 9 of 33 GATEWAY REFINEMENT PLAN Commercial Element COMMERCIAL ELEMENT INTRODUCTION The Commercial Element of the Gateway Refinement Plan addresses lands within the Refinement Plan area that are commercially designated OR the Metre DlaR Diagram It also addresses conditions that may warrant changes in Metro pRIan designations (or appliGatiGR f GOr, -noble RefiRer, eRt DlaR deSi.Ratkm4 to reflect more appropriate uses (r,ORSiSteRt with Metre DlaR teXt), or to acknowledge well-established, compatible commercial uses, which meet the goals and policies of applicable comprehensive plansthe Metre Dlor, and which would otherwise be considered non-conforming. The purpose of this Element is to provide site-specific applications of adopted Metre Plan commercial aPA-us plan designations, to resolve plan/zone conflicts, and to resolve identified land use conflicts and neighborhood compatibility issues. Three types of commercial apA-usus-aplan designations are established on the Refinement Plan Diagram, i.e., Community Commercial (CC), Neighborhood Commercial (NC), and General Office (GO). The "Commercial Areas" Map on page 23 shows the primary commercial areas within the Refinement Plan area. An overview and analysis of commercially- designated areas, an assessment of relevant land use issues, and the designation criteria used to assess the appropriateness of commercial designations in potential conflicts areas are included in the Commercial Element of the GRP Technical Supplement. Findings, which support the commercial policies, also are included in the Commercial Elements of the GRP Technical Supplement. GOALS 1. Improve the appearance and vitality of all commercial activities in the Gateway Refinement Plan area, especially those that promote regional economic development and provide everyday neighborhood services. 2. Minimize potential conflicts between residential and commercial development. 3. Ensure availability of an adequate supply of land appropriate for commercial development. POLICIES AND IMPLEMENTATION ACTIONS 1.0 Provide for appropriate buffering between commercial and adjacent residential uses. 1.1 Give particular attention, during the site plan review process, to minimizing lighting, noise, and visual impacts from commercial development on adjacent residential areas. 2.0 Improve the appearance of the freeway commercial area around the intersection of Gateway Street and Belt Line Road. 2.1 As part of the site plan review process for development, require all landscaped areas to be at least 75 percent covered with living plant materials within 3 years of the date of installation. 2.2 Through the site plan review process requires 7.5% of the interior of parking lots visible from arterials and collectors to be landscaped. Require vegetative screening of parking lots. Allow such vegetative screens to include shrubs to 3 '/2' high, except in vision clearance areas. 2.3 Require properties developing along the potential access routes to the McKenzie-Gateway Special Light Industrial site to provide planter strip and front yard landscaping designed to enhance the site's entryway. Examples could include additional street trees and landscaped areas. 18 Ordinance No. 6463 Exhibit C, Page 10 of 33 GATEWAY REFINEMENT PLAN Industrial Element INDUSTRIAL ELEMENT INTRODUCTION The Industrial Element of the Gateway Refinement Plan addresses lands within the Refinement Plan area that currently have industrial Me#e-pRlan designations, and lands that may warrant re-designation in order to reflect a more appropriate use, or to acknowledge a pre-existing,well-established, compatible use that would otherwise be considered non- conforming. The purpose of this Element is to provide site-specific application of adopted Metre PlaR industrial nand useplan designations, to resolve plan/zone conflicts, and to resolve identified land use conflicts and neighborhood compatibility issues. Two industrial apA-aac aplan designations are established on the Refinement Plan Diagram, i.e., Special Light Industrial (SLI), and Light-Medium Industrial (LMI). The Refinement Plan Diagram also indicates a "mixed-use asterisk"for a portion of the LMI-designated area,which allows for limited development of commercial uses. An overview and analysis of industrially-designated areas, an assessment of relevant land use issues, and the designation criteria used to assess the appropriateness of industrial designations in potential conflicts areas are included in the Industrial Element of the GRP Technical Supplement. Findings, which support the industrial policies, also are included in the Industrial Element of the GRP Technical Supplement, and are divided into three sub-areas: 1)Shelley Street Sub-area; 2) "Q"/Laura Street Mixed- Use Sub-areas; and 3)the McKenzie-Gateway SLI Site. (See the "Industrial Areas" Map on page 30.) GOALS 1. Enhance the appearance and economic viability of the Shelley Street and the "Q"/Laura Street Sub-areas. 2. Minimize environmental impacts associated with industrial development in the Refinement Plan area. 3. Minimize potential conflicts between industrial and commercial development in the Shelley Street and "Q"/Laura Street Sub-areas and the neighboring residential developments to the north, and between the commercial and industrial developments within the "Q"/Laura Street Sub-areas. 4. Minimize uncertainty in the development process, as it applies to the "Q"/Laura Sub-area. 5. Recognize the existing mix of commercial and industrial uses in the "Q"/Laura Street Sub-areas, and the suitability of this area for a limited amount of CC uses, while preserving its suitability for its primary (industrial) purpose. 6. Encourage infill development in the Shelly Street and "Q"/Laura Street Sub-areas, consistent with Metro Plan policy guidance. 7. Ensure the suitability and desirability of the McKenzie-Gateway SLI Site for its primary intended (Special Light Industrial) use in a way that is consistent with the campus-industrial park concept. 8. Ensure the orderly and efficient development of the McKenzie-Gateway SLI Site. 9. Ensure the economic viability and attractiveness of the McKenzie-Gateway SLI Site development. 10. Minimize the potential for conflict between McKenzie-Gateway SLI Site development and other neighboring land uses, including existing on-site residential and agricultural uses. 11. Minimize impacts of McKenzie-Gateway SLI Site development on scenic, environmental and cultural resources. 22 Ordinance No. 6463 Exhibit C, Page 11 of 33 GATEWAY REFINEMENT PLAN Industrial Element 5.2 The City shall, no later than six months following the adoption of this Refinement Plan, amend the SDC to include a Mixed-Use LMI/CC zoning District,with development standards and approval criteria designed to address compatibility and traffic issues. 5.3 When the SDC has been amended to include the MU LMI/CC zoning District, all properties in the "Q"/Laura Street Sub-area will be rezoned MU LMI/CC. 5.4 CC uses not specifically listed in SDC Article 20 [now Section 3.2.400] as permitted in the LMI District shall be allowed on a maximum of 40% (14 acres)of the "Q"/Laura Mixed-Use Sub-area. 5.5 In the interim (until items 5.2 and 5.3 above have been implemented) all uses permitted in the LMI Zoning District, Article 20 of the SDC [now Section 3.2.400], shall be permitted in the "Q"/Laura Mixed-Use Sub- area, as follows: a) Such uses shall comply with the provisions of SDC Article 20 (LMI, HI, and SHI Industrial Zoning Districts) [now Section 3.2.400]; and b) Such uses shall be zoned LMI. 5.6 In the interim (until item 5.2 and 5.3 above have been implemented), CC uses not specifically listed in SDC Article 20 [now Section 3.2.400] as permitted in the LMI District shall be permitted in the "Q"/Laura Mixed-Use Sub-area, under LMI zoning, as follows: a) Such CC uses shall be permitted on a maximum of 40% (14 acres) of the "Q"/Laura Mixed-Use Sub-area; b) Such CC uses shall not be permitted unless traffic and compatibility issues can be resolved in the site plan review process. Traffic impact studies may be required; and c) Such CC uses shall comply with CC parking, screening, setback, and other development standards contained in SDC Article 18, Commercial Zoning Districts [now Section 3.2.300]. 6.0 Eliminate plan/zone conflicts in the "Q"/Laura Street Sub-area. 6.1 Rezone the King Arthur subdivision to LMI and designate it as MU-LMI/CC on the Refinement Plan Diagram. 6.2 Designate the KORE site (Assessor's Map 17-03-27-10 tax lot#' 4200 and Assessor's Map 17-02-17-13 tax lot# 10900) MU-LMI/CC on the Refinement Plan Diagram. 7.0 Ensure that McKenzie-Gateway SLI Site development achieves a high level of aesthetics and amenity, consistent with the iRt8Rt of the Meer„ Plan SLI d86igRatiGR any with the "campus industrial" concept. 7.1 Through the conceptual development plan and site plan review processes, encourage an integrated system of useable shared open spaces and recreational trails linking development areas to each other and to the river. 7.2 Through site conceptual development plan and site plan review processes, encourage the separation of bicycle and pedestrian paths from roadways wherever possible. 7.3 Through the conceptual development plan and site plan review processes, encourage the provision of on- site passive and active recreational facilities. 7.4 Through the conceptual development plan and site plan review processes, encourage the use of site design techniques to emphasize the site's main access points; for example, additional setbacks, additional landscaping designed to accentuate the entry, and monument signage identifying the site. 7.5 Encourage conceptual development plans to include recommendations or requirements for unified planting themes and streetscapes along the internal collector system. 8.0 Provide for an efficient and flexible transportation system for the McKenzie-Gateway SLI Site. 24 Ordinance No. 6463 Exhibit C, Page 12 of 33 GATEWAY REFINEMENT PLAN Natural Assets, Open Space/Scenic Areas,and Recreation Element (a) Water-side protection (policy#2a) (b) Public access (policy#4) (c) Clean-up, restoration and education (policy#5) (d) Stormwater planning (policy#6) 5.0 Willamalane shall continue to provide adequate parks and recreational facilities in the Refinement Plan area, which are sensitive to natural assets and scenic values, and are of appropriate size and type for their surrounding environments. 5.1 Willamalane shall work to improve the function and design of, and access to, Gamebird and Guy Lee parks, and upgrade outdated and aging park facilities. Evaluation of the needs and timelines for improvement projects at these parks shall be included in Willamalane's facilities planning process. 5.2 In neighborhood and school parks (such as Gamebird and Guy Lee), Willamalane shall provide opportunities for both active and passive recreation, including picnic areas, playgrounds, multi-use turf areas, and unorganized sports facilities. 5.3 Where natural resource values are present in Willamalane parks, the District shall provide passive recreation opportunities, such as trails, observation platforms, boardwalks, and educational/interpretive facilities, in a manner consistent with the applicable adopted natural resources policies. These facilities shall be approved under the site plan review process. 5.4 If natural assets in Willamalane parks/facilities have been disturbed, Willamalane shall initiate reclamation and management plans. 5.5 Willamalane shall evaluate impacts of the sports facility orientation of Guy Lee Park, and explore options for modifying and improving the park to be more compatible with the neighborhood. 5.6 Willamalane shall work with School District 19 to explore the possibility of joint school/park development with the School District-owned parcel to the South of Gamebird Park. 5.7 Willamalane shall consider acquisition of, and improvements to, Deadmond Ferry Landing in its facility planning process, in order to increase its functionality and improve its ability to serve public recreation needs. 5.8 Every effort should be made to provide incentives for achieving high quality design in future projects. Examples of such incentives include offering tax concessions, density transfers, or other bonuses as credits for setting aside and constructing pathways and greenways, natural storm water management facilities, and other efforts to provide public amenities and sound land use practices. 6.0 Maintain and enhance the natural resource, recreational, and educational values associated with the Guy Lee Ash copse and the adjacent SCS Channel #6. 6.1 Redesignate the publicly-owned land adjacent to SCS Channel#6 from Low Density Residential to Parks and Open Space.'- 6.2 The City shall encourage and support Willamalane and School District 19 in their efforts to develop a demonstration wetland restoration/education project at the Guy Lee Ash copse (NRSS site S14) 6.3 The following policies shall be applied to the Guy Lee Ash copse (NRSS site S14) as recommended in the NRSS (see GRP Tech. Supp., Appendix C): (a) Watershed protection (policy#2a) (b) Low impact recreation access (policy#4a) i Ordinance XXX changed the name of the plan designation from Parks and Open Space to Public Land and Open Space. 31 Ordinance No. 6463 Exhibit C, Page 13 of 33 GLENWOOD r , PtEFINEMENT PLAN November 1999 Ordinance No. 6463 Exhibit C, Page 14 of 33 Design Recommendations are suggestions for public and private actions that would result in better urban design in Glenwood. Plan Implementation lists priorities for actions that will implement the plan. These implementation priorities are recognized by the elected officials as the most important actions to consider in carrying out the intent of the plan. This section also describes the plan amendment processes. The Glenwood Refinement Plan also includes an Appendix dated April 1989 printed under separate cover. The Appendix contains background material used in developing the plan, including materials from both issues sessions; history of zoning and annexation; Bancroft and assessment practices; and detailed information on the planning team's discussions on the vacation of 21 st Avenue in the Phase I area. VI. PLAN RELATIONSHIPS TO OTHER PLANS AND POLICIES ThPGlPnWnnd RPf0nPrPPnt PlAn rQfinPrPPnt of thp Eugene Springfield Metropolitan Area General Plan, adepted On 1982. This plan is the guiding dGGLArnent for p6ibliG deGi-sie—ns -Affe-p-ting the metropolitan area. Refinernent plans P A 11 is t h-P- G GngsigstP—nt I.A.4th the direp-tion established by the MetrepelitaRPWR. ARY are addressed through arneRdrn8Rts to the Metrepelitan DlaR at the fame of the refiRer, 8Rt plan add),firs, COMPREHENSIVE PLANS The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan amendment to establish a Springfield urban growth boundary and adopt a city-specific residential element (chapter). The City has since added more elements to the Springfield Comprehensive Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield urban growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield's applicable comprehensive plans. Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield Comprehensive Plan. The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter II-G and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07).The Springfield Comprehensive Plan Map includes the plan designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting amendments since the Refinement Plan's original adoption and some minor plan designation name changes is included prior to the Table of Contents in this document. The original Refinement Plan Diagram is retained on page 20 for historical reference. -6- Ordinance No. 6463 Exhibit C, Page 15 of 33 NEIGHBORHOOD REFINEMENT PLANS Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive Plan. Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate changes made through adoption of more recent plans. For example, adoption of Springfield's Transportation System Plan resulted in changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally prevails. ■ -7- Ordinance No. 6463 Exhibit C, Page 16 of 33 Figure 3 Number of Residential Units by Structure Type (20 Units) 2.69% 22.5a% - Duplex (167 Units) H Manufactured Dwelling in Park (20 Units) 2.69% - - Manufactured [Dwelling 6.18% "on Lot (46 Units) 5.86/a o H Multi-Family fi (490 units) - Single Family 2/87 Source: Lane Council of Governments There are 167 single-family residences in Glenwood. Of these, 42 percent are owner-occupied. Eugene's windshield survey conducted to determine general housing quality has indicated that a majority (62 percent)of the residential structures in Glenwood are in need of major repair. C. Industrial and Commercial Land Use Over the past 30 years, industrial development has gradually become the single most predominant form of development(14 percent)in Glenwood. In line with this industrial orientation, a majority of Glenwood's total acreage (59 percent) and of Glenwood's vacant acreage(65 percent)is designated On the Metr p rtan Plan for light-medium industrial use. Industrial park sites and freestanding industrial sites are available for development as well. A majority of the land (68 percent)in Glenwood is also zoned for industrial use. On the other hand, there is very little land developed (six percent), designated (eight percent), or zoned (two percent)for retail commercial uses. These commercial uses are located mostly along Franklin Boulevard. About 116 acres of industrially zoned land in Glenwood is vacant. Of this total, a majority of these parcels are five acres or less in size (There are 73 acres in 67 parcels). Conversely,there are 43 acres in five parcels that are six acres or larger(See Figure 4 Page 13, Industrially Zoned Undeveloped Area). These figures indicate that most of the industrial land in Glenwood is best suited for small to mid-size industrial uses. -12- Ordinance No. 6463 Exhibit C, Page 17 of 33 1. This subarea shall be considered appropriate for low-density residential use. 2. The City shall act to maintain the viability of existing residential development, including single-family homes and manufactured dwellings. 2.1 Adopt methods to allow for the replacement of existing manufactured dwellings or placement of new manufactured dwellings on vacant lots. 2.2 Adopt methods to allow small-scale manufactured dwelling parks (3-10 manufactured dwellings)to remain. 3. Where appropriate, the City shall allow continuation of existing nonconforming uses established under earlier Lane County zoning. 3.1 Recognize the granola-making business on the southwest corner Concord and 15th Avenue as a non-conforming use. 3.2 Consider amending Article 5, the Springfield Development Code regulations pertaining to pre-existing non-conforming use status and Articles 18 and 20, Commercial and Industrial zoning districts. 4. The City shall support residential zoning that allows farm animals for non-commercial purposes. 4.1 Retain LDR zoning upon annexation to the City. SUBAREA 2. SOUTH 17TH AVENUE TRANSITIONAL AREA (Refer to the Plan diagram on Page 20) The South 17th Avenue Transitional area is a small residentially developed area consisting of 19 tax lots in nine acres. The area is developed with 17 houses, two manufactured dwellings, and a logging supply business. Lane County originally zoned this area for, industrial use in 1955. In 1982, Lane County changed the zoning to RA Suburban Residential to conform to the existing residential land use in the area. This area is a Metr p litan Plan designateds this area for light-medium industrial use. The area is currently bordered by industrial zoning on the south, west, and north sides and partially on the east side. Most of the industrially zoned land is vacant, at this time. POLICIES 1. This subarea shall be considered appropriate for eventual light-medium industrial use. 2. The City shall allow for a gradual transition from residential to future industrial use. 2.1 Retain existing low-density residential zoning until individual property owner's request a change to light-medium industrial zoning. -22- Ordinance No. 6463 Exhibit C, Page 18 of 33 Glenwood Boulevard is classified as an arterial street. It extends from Franklin Boulevard to 1-5 with access to and from the freeway.A drainage slough forms the southern boundary of this subarea. The slough is identified as a potentially regulated wetland area in a metropolitan-level review of wetlands. The primary land use pattern for this area should remain industrial in the future to accommodate light manufacturing and/or distribution activities. The central location of this subarea in the metropolitan area and the access to Franklin Boulevard and 1-5 via Glenwood Boulevard make this location particularly well suited for distribution facilities. While the primary designation for this area should be industrial, there are certain characteristics peculiar to the area that indicate other options could also be appropriate. Development of LTD'S facilities may ultimately generate some local demand for supporting commercial development. The subarea's central location and access factors may also make the area attractive for an independent retailer, such as a discount store.The intent here would be to accommodate a single user or single development site that requires a relatively large land area, and to avoid the creation of additional strip commercial through development of a multiplicity of small, independent uses. The subarea is designated in the Meer p 4tap oian for light-medium industrial use. POLICIES 1. This subarea shall be considered appropriate for: - mixed-use for the northwest, southwest, and southeast corners of Glenwood Boulevard and 17th Avenue. - light-medium industrial for the rest of the subarea. 2. The City shall allow for the possibility of a locally oriented commercial site to serve the developing needs of the area. 2.1 Permit rezoning of the approximately three acres in the southeastern quadrant of the intersection to a Neighborhood Commercial district or other commercial district that would provide for locally oriented uses. 3. The City shall allow for the possibility of a large single commercial use or development site, such as a discount store. 3.1 Permit rezoning of a development site at the southwestern or northwestern corner of the intersection to the Community Commercial district, provided the entire ownership as it exists on the date of the refinement plan's adoption is included.Any tract rezoned to a commercial district under this provision should not be approved for further land division. i SUBAREA 4. GLENWOOD INDUSTRIAL AREA (Refer to the Plan diagram on Page 20) The Glenwood Industrial Area encompasses a large portion of Glenwood. It includes all portions of Glenwood not within a specific subarea. The major portion of this subarea is in the interior of Glenwood. Much of this area is vacant or underdeveloped and the rest of the area is developed -24- Ordinance No. 6463 Exhibit C, Page 19 of 33 with a variety of industrial uses. The area includes such major industrial uses as P. W. Pipe Company, United Parcel Service, and the Lane County Central Receiving Station for solid waste. The majority of the area was zoned M-2 Light Industrial by Lane County in 1955 with scattered parcels zoned M-1 Limited Industrial at the same time. The area is still zoned for light-medium industrial use. The most westerly portion of this area is already within the City. In 1976 Lane County constructed a solid-waste facility in Glenwood. The Central Receiving Station is a transfer site for solid waste from the metropolitan area. Solid waste is received and deposited in the facility's pit where it is compacted and then trucked to the Short Mountain landfill. The site also has a recycling station and a composting project for yard waste. Because of the nature of the activity, the facility does affect surrounding areas in Glenwood. These impacts range from litter generated by uncovered loads traveling through Glenwood to odors from the pit itself. This Subarea a Metropolitan Plan is designated&this Subarea for light-medium industrial use. POLICIES 1. This subarea shall be considered appropriate for light*medium industrial use. 2. The City shall protect nearby residential development from the impact of industrial expansion. 2.1 Use the Industrial Site Development Guidelines as criteria in reviewing development proposals through the site plan review process. 3. The City shall consult with Lane County to reduce litter and odors from the solid waste facility. Z. ..Jam^ Q ,� -- - SUBAREA 5. GLENWOOD OPEN SPACE (Refer to the Plan diagram on Page 20) This Subarea includes two separate geographic areas: 1)the Laurel Hill Cemetery on Judkins Road; and 2)the area between 1-5 and the railroad tracks in southeast Glenwood. Both areas are presently designated for publicarks land and open space in the Metropolitan Plan. The southeast Glenwood area is currently undeveloped and has steep terrain. It is an area that -25- Ordinance No. 6463 Exhibit C, Page 20 of 33 regulations to take into account when reviewing development proposals within the Greenway. Springfield has established a Greenway Setback Line along the Willamette River, both within the city limits and the City's urban transition area.The City will establish a Glenwood Greenway Setback Line within one year of the adoption of this plan. The Willamette River Site Development Guidelines beginning on Page 37 shall continue to apply until the Glenwood Greenway Setback Line is established. Because of the breadth and diversity of land uses and character of the corridor, this subarea is broken into five smaller subareas: River Industrial, Franklin Commercial-Industrial Strip, River Opportunity Area, McVay Mixed-Use Area, and South McVay Industrial.These subareas are discussed below and have policies and implementation strategies specific to them. SUBAREA 6. RIVER INDUSTRIAL (Refer to the Plan diagram on Page 20) The River Industrial area includes all parcels between Franklin Boulevard and the Willamette River from the 1-5 bridge to the Jay Oldham storage yard. It also includes the first seven parcels on the south side of Franklin Boulevard ending just west of Brooks Auto Parts. The parcels on the north side of Franklin Boulevard have historically been used for major industrial uses and the area is still predominantly industrial with such large well-established uses as Myrmo's and Willamette Graystone. There are also smaller, more commercially oriented uses on parcels fronting Franklin Boulevard such as car dealerships and pawn shops. The majority of the parcels on the south side of Franklin Boulevard are vacant and under one ownership. One parcel has two houses.All of these parcels back up to the Lane County Solid Waste Facility on the south. Because these parcels are vacant and have frontage on Franklin Boulevard, the site may also be desirable for commercial use. The intent here would be to accommodate a single large user rather than a proliferation of smaller commercial uses so that strip commercial would not be extended on Franklin Boulevard. The River Industrial area is designated for light-medium industrial use an the Met p litan Plan POLICIES 1. This subarea shall be considered appropriate for: - mixed use for the parcels on the south side of Franklin Boulevard; - light-medium industrial for the rest of the subarea. 2. The City shall recognize existing commercial development. 2.1 Allow for continued commercial use of smaller parcels with frontage on the north side of Franklin Boulevard and a shallow lot depth by allowing Community Commercial zone changes. 3. The City shall recognize the possibility of commercial development on the south side of Franklin Boulevard. 3.1 Allow rezoning of parcels on the south side of Franklin Boulevard to the Community Commercial district, provided the entire ownership as it exists on the date of the -28- Ordinance No. 6463 Exhibit C, Page 21 of 33 SUBAREA 7. FRANKLIN BOULEVARD COMMERCIAL-INDUSTRIAL STRIP (Refer to the Plan diagram on Page 20) The Franklin Boulevard Commercial-Industrial Strip is located along the south side of Franklin Boulevard and it extends east from Brooks Auto Parts to the railroad overpass. Although most of the strip has industrial zoning, many of the uses are commercial in nature (such as the Glenwood Market)or commercially oriented industrial uses (such as Case Equipment). The area also includes scattered residential uses. In some cases this area extends more than a block south of Franklin Boulevard in recognition of existing industrial development patterns. This is particularly true on the east side of Brooklyn Street,which is currently developed with a mixture of industrial and residential uses, including houses, a church, a warehouse, and a truck repair business. The Franklin Boulevard Commercial-Industrial Strip, except for the east side of Brooklyn Street, is designated for commercial use ;n the neo+rGpelitan Plan. The east side of Brooklyn Street is designated for light-medium industrial use. POLICIES 1. This subarea shall be considered appropriate for mixed commercial-industrial use. 2. The City shall allow a mix of zoning districts in order to reflect the combination of land uses in the subarea. 2.1 Allow Community Commercial zoning (parcels may retain Light-Medium Industrial zoning). Ir r-e.---..wr-r.�.-.�bl:Ni tea- i -- � - Y{ �4 L �• 2.2 Allow residential uses to retain Low Density Residential zoning. -30- Ordinance No. 6463 Exhibit C, Page 22 of 33 with a total of 80 manufactured dwellings and 49 RV spaces on 15 acres on the west side of the McVay Highway. It also includes some commercial and industrial uses oriented to the McVay Highway near 20th Avenue and houses scattered throughout the area, especially along 20th Avenue. This area also includes a large vacant parcel which fronts on the river and James Park, a neighborhood park located off 19th Avenue owned and operated by the Willamalane Park and Recreation District. The Parks and Recreation section of the Public Facilities and Services Element discusses James Park and explores the possibility of creating a park on the river side of McVay Highway. All of the mobile home parks in Glenwood allow overnight RV usage. The Springfield Development Code currently allows RV parks only within the Community Commercial district. Overnight RV usage within parks is only allowed under certain conditions in certain parts of the City. The manufactured dwelling parks on the west side of McVay are generally older than the ones on the east side and will probably be redeveloped within the next 15 years.While the manufactured dwelling parks on the west side of McVay are currently designated for low-density residential use, in the long term this area will probably he redeveloped for industrial use.This change would require a plan amendment. Most of the parcels on the river side of the McVay Highway are within the Willamette River flood hazard area, either within the floodway itself or in the 100-year floodplain. New development within the floodway is extremely restricted. Replacement of existing manufactured dwellings within the flood hazard area is currently allowed. The Meer PGImta oia deli Rates part of the area along the McVay Highway is designated for commercial use, while G186igllatiRg the areas of the existing manufactured dwelling parks on both sides of McVay are designated for low-density residential use and the rest of the area for light-medium industrial use. POLICIES 1. This subarea shall be considered appropriate for: - mixed use for parks, office and industrial parks and medium-density residential use on the east side of the McVay Highway; - low-density residential use for the two manufactured dwelling parks on the west side of McVay Highway; - commercial use in the vicinity of 20th Avenue; - park use for James Park and the old Glenwood school site; and - light-medium industrial for the remainder of the subarea. 2. The City shall allow for appropriate zoning reflecting the land use designations within this subarea. 2.1 Allow for a mixture of zoning districts that would allow parks, office and industrial parks, and medium-density residential use. 2.2 Allow manufactured dwelling parks to have Low Density Residential zoning. -33- Ordinance No. 6463 Exhibit C, Page 23 of 33 2.3 Allow Neighborhood Commercial or Community Commercial zoning within the commercially designated area. 3. The City shall consider this area as appropriate for RV use. 3.1 Continue to allow RVs to replace RVs and manufactured dwellings in existing manufactured dwelling parks that contain RVs. 4. The City shall defer to Willamalane to consider the potential for future park development within the area adjacent to the Willamette River. Refer to the Franklin Boulevard/Willamette River Corridor policies on Page 27 for additional policy direction. SUBAREA 10. SOUTH MCVAY INDUSTRIAL (Refer to the Plan diagram on Page 20) This area is located on both sides of the southern portion of the McVay Highway as it exits the Glenwood area. While existing uses are mostly industrial in nature, the opportunity exists for office or industrial park development that takes advantage of the riverfront location. The South McVay Industrial area is designated for light-medium industrial use1 the POLICIES 1. 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a O s o a) U Q U aJ� C } U E Oa) -'a s o o sao U o 5 oa °cO � o O O C- Q- a) w ° c c -0 a) M a — o o f 0 O a N w O `c -0 c `U cC iN m a Qa- a �.Oa) 'jV `HucC a c o O_O -0 -a a) - a) c O o ,,;° OO a) dO> a -} N a - � a) O cD M � O QD u O E u > u cy O > M A N a Q a) s S >, NN --a OO O N V V _ a �U ) Z cc O a7 > E N = cLS c a) _ a a) O w v� a) _ •� a a s a c N_ 3a E Xa) . ya) _aE O sc maai s._>Os _o csECie ° °° a a° . s �T a a w c c m N '_D o oo o = ° 0 U a a) O O > u ° m a V) m c oQ -a Q .y O a fl s s = aci a) _) E Q —_ o E O o E s `� o ax) u — E a O U Q- c: u h 0- N `r) s O o muD n a) s N ° a) O H a O a) = s N a u ° _ 0 3 o > o u a > �' >.� _ ° o ff Q } u m -0 � V a� a -N o a N n E m c a M O � _ a) = v� N m a V s o a r� a� c o s o .} E > 3 aa)) ° M Q) � E W "E M_ a D c N a E ° aa) .0 o 0 ac) 3 a > a) s O ) � O ° O � s E _s U uaE o = a OO =aa) o - - X s c ca s > O > — n a) > a s 0 O c y O (D L2 to _ N a >, 0 V a C C N V N _ —0 S N U h = C = CV - O T+ — • H hO O ccc:M cs_ _wV OE O VO � a) O a7 m M >: O Cl)CM V ° V U ti U_ O^ > 2 D ° ° o2 V a) aa 0- oDy- OU Exhibit D, Page 1 of 26 Exhibit D Neighborhood Refinement Plan Amendments for Springfield-only adoption East Main Refinement Plan: • Replace the Public/Semi-Public designation with a Public Land and Open Space designation, as shown on the Refinement Plan Diagrams in Exhibit A • Replace the Parks and Open Space designation with a Public Land and Open Space designation, as shown in track changes on the following pages • Replace reference to the Metro Plan Diagram with reference to the Springfield Comprehensive Plan Map and replace reference to Metro Plan text with reference to the Springfield Comprehensive Plan, as shown in track changes on the following pages • Add text referencing the Springfield Comprehensive Plan to make the distinction between the Metro Plan and/or relationship to refinement plans, as shown in track changes on the following pages Mid-Springfield Refinement Plan: • Replace the Parks and Open Space designation with a Public Land and Open Space designation, as shown on the Refinement Plan Diagrams in Exhibit A • Remove reference to the Metro Plan Diagram or replace with reference to the Springfield Comprehensive Plan Map, as shown in track changes on the following pages • Replace reference to the Metro Plan text with reference to the Springfield Comprehensive Plan, as shown in track changes on the following pages • Add text referencing the Springfield Comprehensive Plan to make the distinction between the Metro Plan and/or relationship to refinement plans, as shown in track changes on the following pages Q Street Refinement Plan: • Replace the Public/Semi-Public designation with a Public Land and Open Space designation, as shown on the Refinement Plan Diagrams in Exhibit A • Add text referencing the Springfield Comprehensive Plan to make the distinction between the Metro Plan and/or relationship to refinement plans, as shown in track changes on the following pages Ordinance No. 6463 Exhibit D, Page 2 of 26 EAST MAIN REFINEMENT PLAN (Interim Printing June 2023) Prepared by: Development and Public Works Department City of Springfield SPRINGFIELD OREGON ADOPTION DATES: City of Springfield —April 4, 1988 Lane County —June 22, 1988 City of Eugene (Metro Plan Amendments Only) —April 25, 1988 TEXT AMENDMENT DATES: January 21, 2020 DIAGRAM AMENDMENT DATES: June 5, 1989 March 15, 1993 November 15, 1993 October 7, 2002 July 7, 2003 July 16, 2007 Ordinance No. 6463 Exhibit D, Page 3 of 26 TABLE OF CONTENTS INTRODUCTION ..................................................................................................2 FINDINGS ..................................................................................................................... .3 ELEMENTS: CRITERIA, GOALS & POLICIES RESIDENTIAL ELEMENT .................................................................................................110 MIXED-USE ELEMENT ....................................................................................................143 COMMERCIAL ELEMENT ................................................................................................165 INDUSTRIAL ELEMENT ................................................................................................. 176 PUBLIC FACILITIES ELEMENT .........................................................................................187- ENVIRONEMENTAL DESIGN & RECREATION ELEMENT ...................................................204-9 ENVIRONMENTAL DESIGN .................................................................................... 2049 RECREATION ...................................................................................................... 2049 ACCESS, CIRCULATION & PARKING ELEMENT ...............................................................23-2 TRANSIT ............................................................................................................... 232 BICYCLE ............................................................................................................... 243 PLAN IMPLEMENTATION ELEMENT .................................................................................254 GLOSSARY ................................................................................................................ 276 LIST OF MAPS AMENITIES & PUBLIC FACILITIES..................................................................................................... 1 PLANDIAGRAM ............................................................................................................ 28 LARGE VACANT AREAS ................................................................................................................... 29 DEVELOPMENT CONSTRAINTS ...................................................................................... 30 CITY OF SPRINGFIELD SANITARY SEWER SYSTEMS ....................................................... 31 NEIGHBORHOOD PARK SERVICE AREAS ........................................................................ 32 STREET CONDITIONS ................................................................................................... 33 PROPOSED STORM SEWER IMPROVEMENTS ................................................................. 34 APPENDIX REFERENCES TO POLICIES OF THE METRO PLAN 1987 UPDATE............................................. i Ordinance No. 6463 Exhibit D, Page 4 of 26 EAST MAIN REFINEMENT PLAN FINDINGS INTRODUCTION PURPOSE The East Main Refinement Plan quides local development and decisions with land use policies addressing this area's specific issues and needs. The application of site-specific plan designations is based on findings of fact and clear criteria. Refinement Plan designations, policies, and implementation actions are designed to minimize the negative impacts of development on existing residential neighborhoods and natural resources, while facilitating development consistent with applicable comprehensive plans. PLAN RELATIONSHIPS COMPREHENSIVE PLANS The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan amendment to establish a Springfield urban growth boundary and adopt a city-specific residential element (chapter). The City has since added more elements to the Springfield Comprehensive Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield urban growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield's applicable comprehensive plans. Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield Comprehensive Plan. The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter 11-G and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07).The Springfield Comprehensive Plan Map includes the plan designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting amendments since the Refinement Plan's original adoption and some minor plan designation name changes is included prior to the Table of Contents in this document. The original Refinement Plan Diagram is retained on page 28 for historical reference. NEIGHBORHOOD REFINEMENT PLANS Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive Plan. Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate changes made through adoption of more recent plans. For example, adoption of Springfield's Transportation System Plan resulted in changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally prevails. 2 Ordinance No. 6463 Exhibit D, Page 5 of 26 EAST MAIN REFINEMENT PLAN FINDINGS FINDINGS RESIDENTIAL 1) Many Medium and High Density Residential developments in the East Main area front on and take their access from Main Street. Many of these developments are not acoustically designed to reduce noise from Main Street. 2) Residents in the area have complained to the City of truck drivers bringing fully loaded trucks onto local streets. 3) Compact Medium and High Density Residential development along major streets is conducive to improved transit ridership and the viability of adjacent commercial developments. 4) The Metro Plan encourages the location of Medium and High Density Residential within '/2 mile of existing or future employment centers (Metro Plan, page III-F-5, policy#2). A large portion of the East Main area is within '/2 mile of the Weyerhaeuser Springfield Operation, Springfield's largest employer. 5) The Metro Plan encourages the location of higher density residential uses near existing or future commercial centers (Metro Plan, page III-A-7, policy #30). There are two large commercial nodes in the East Main area: 42nd and Main Street, and 571" and Main Street. 6) Conflict between property owners may occur where there is an absence of adequate visual and acoustic buffering between commercial/industrial uses and residential uses. In the East Main Area there are very few cases where visual or acoustic buffering between commercial/industrial uses and residential uses have been employed. 7) Older mobile home parks are generally developed at a higher density than surrounding Low Density Residential areas due to the use of single wide manufactured homes and the less restrictive standards at the time the parks were built. 8) There is an area of approximately 90 acres south and west of the Weyerhaeuser Logging Road, which is vacant residential land (see Area #1, on the Refinement Plan Diagram). 9) The tree covered ridgeline in Area #1 is visible from Main Street and serves as an attractive setting for residential development. 10)There is a pond located in Area #1 of the Refinement Plan Diagram. It is not identified in the Metro Plan wetland inventory. As a potential wetland this site will be inventoried during the Metro Plan Update process to determine its significance. 11)A portion of a lot located north of the proposed Daisy Street Connector and west of the Weyerhaeuser Logging Road (see Development Constraints map) has poor access. 12)Along Main Street, in the area east of 491" Street, Medium and High Density Residential uses predominate and are interspersed with neighborhood oriented commercial uses and some community commercial uses. Strip commercial activity has not completely taken over this area. 3 Ordinance No. 6463 Exhibit D, Page 6 of 26 EAST MAIN REFINEMENT PLAN FINDINGS 13) Rental vacancy rates are decreasing and rents are rising creating a market for new rental housing construction. 14)Siting high density housing is difficult considering the fact that the majority of the areas where high density housing is most appropriate, near the downtown areas and close to areas of employment of shopping areas, has little vacant land. For the reasons mentioned above, it is important to preserve vacant areas which are designated for medium and high density residential use GR the MetF PlaR .. MIXED-USE 1) The area between 43rd and 491" Streets along Main Street has a mix of High and Medium Density Residential, Neighborhood and Community Commercial, and one Light-Medium Industrial (LMI) use. 2) Much of the area fronting on Main Street, in the East Main area, wa+s designated Medium Density Residential/Mixed-Use on the Metro Plan Diagram. 3) There is little direction given in the Metro Plan on implementation of the Mixed-Use designation.' 4) There is a need to provide buffering between residential and commercial industrial uses within the Mixed- Use areas along Main Street. 5) Generally, larger mixed-use developments are more able to make efficient, attractive, and safe use of the land than smaller developments. 6) Where compatibility issues are adequately addressed, it may be desirable to maintain a mix of uses. 7) There are two large, vacant parcels 9 and 25 acres in size) within Mixed-Use Area #2 on the Refinement Plan Diagram. 8) The Springfield Development Code, as amended on November 17, 1987, allows Medium and High Density Residential uses in the Community Commercial zoning District within areas designated Mixed- Use on the Refinement Plan Diagram. COMMERCIAL 1) There is virtually no visual buffering between commercial and industrial uses in the East Main area. 2) There is little direction given in the Metro Plan on the implementation of the Mixed-Use designation. 3) There are two shopping centers within the East Main area, with mixed commercial, industrial and residential between the two centers. INDUSTRIAL i The designations shown on the Springfield Comprehensive Plan Map are based on the adopted refinement plan designations. The Metro Plan Diagram no longer includes plan designations for areas within Springfield's urban growth boundary (UGB). z These findingssupported the refinement plan adoption and have not been updated to reflect that the Land Use Element of the Springfield Comprehensive Plan Map replaces the Metro Plan Diagram Chapter II-G for areas with Springfield's UGB,which includes the Mixed-Use designation description. 3IBID. 4 Ordinance No. 6463 Exhibit D, Page 7 of 26 EAST MAIN REFINEMENT PLAN RESIDENTIAL ELEMENT RESIDENTIAL ELEMENT The residential section of this Refinement Plan examines the housing needs of the Springfield/Eugene Metro area and how they relate to the East Main area. The trend since the 1970's has been an increasing percentage of multi-family units in comparison with single-family units. Commercial development pressure for Main Street frontage threatens the availability of land designated for Medium and High Density Residential uses. In order to provide for the full variety of Springfield's future housing needs, it is necessary to maintain the supply of residentially designated land while recognizing the need to provide services to the surrounding neighborhoods. Because the East Main area is so close to Weyerhaeuser a great opportunity exists to provide a variety of housing options close to Springfield's largest employer. The Springfield Comprehensive Plan Map M-et� Plan Diagram shows a full range of residentially designated land within the East Main area, including: Single- Family, Medium Density, and High Density Residential. The area shown as Low Density Area #1 on the Refinement Plan Diagram is largely undeveloped and still in large parcels. Area#1 is bisected by a tree covered ridge line, offering a unique opportunity to incorporate the existing features into a quality residential development. CRITERIA FOR RESIDENTIAL REFINEMENT PLAN DESIGNATION The Plan Designation Criteria are the basis for applying site specific land use designations in the East Main area. In areas where one set of criteria clearly applies the corresponding refinement plan designation shall apply. In certain areas one set of criteria may not clearly predominate. If this occurs other factors, such as metro area need for a specific type of land use may be considered and entered into the findings which support these designations. All designations shall be consistent with the policies in the applicable comprehensive plans MetFG Plan r,nliGieS 1) Generally, the Low Density Residential refinement plan designation shall be applied under the following circumstances: A) Large areas of land that are primarily developed as high quality single-family; B) Areas that are not interspersed with commercial development; C) Areas that are not located directly on arterial streets; D) Aroac that area designated I GW Density Rocide.ptial nn the Meatre Dlan 2) Generally, a Medium Density Residential refinement plan designation shall be applied on the Refinement Plan Diagram under the following circumstances: A) Areas that are currently developed as high quality multiple-family; B) VVheFe designated_ nnorli,im DeRSity OR the MetFG DlaRj S-}BL_To serve as a buffer between Low Density Residential and Community Commercial; S}Q__Within one half mile of a transit transfer station; €}_Within one half mile of a commercial or employment center; and }Within one quarter mile of an arterial street. 3) Generally, the High Density Residential refinement plan designation shall be applied under the following circumstances: A) Areas that are currently developed as high quality High Density Residential; C4B) Areas within one half mile of a transit transfer station; 11 Ordinance No. 6463 Exhibit D, Page 8 of 26 EAST MAIN REFINEMENT PLAN RESIDENTIAL ELEMENT S}gJ_Areas which can meet the solar set-back requirements and other Development Code restrictions; €}Q,Areas that are within one quarter mile of an arterial or collector street; }Where large vacant parcels exist or a number of smaller parcels can be put together; and G}fL_Within one half mile of a commercial or employment center. GOAL 1) Provide a variety of sound, affordable housing for all segments of the population. POLICIES 1) The City shall actively participate in efforts to maintain and enhance existing residential neighborhoods and attract compatible Medium and High Density Residential developments that would improve the East Main area. 2) Provide continued financing for the City's home and rental rehabilitation program, preferably at current funding levels or above, using CDBG funds and other sources. 3) The following policies shall be applied to Low Density Residential Area #1 on the Refinement Plan Diagram. A) Development within Area #1 shall follow the development standards contained in Article 26 [now Section 3.3.500] of the Springfield Development Code, Hillside Development Overlay District. The Overlay District shall apply to all of Area #1. B) Density transfer to other portions of Area#1 shall also be allowed for portions of Area #1 with development constraints other than slope (see Development Constraints map). In no case shall the total number of units exceed the maximum density allowed in the LDR District. C) Transportation and access shall be designed to be sensitive to the terrain and recognize City and regional transportation needs. D) A Conceptual Development Plan shall be prepared for Area#1 and approved by the Planning Commission according to the requirements in Plan Implementation Policy#2, prior to any development, partitioning or lot line adjustments in the area. E) The minimum development area for Area #1 shall be 10 acres. 1. This minimum development area may be slightly reduced if the Director determines that the development proposal is consistent with the Springfield Development Code, this refinement plan, and the approved Conceptual Development Plan. 2. A Development Area Plan (DAP) shall be prepared according to the Plan Implementation Policy #3. Medium Density Residential 4) A minimum development area of 30,000 square feet shall be required for all Medium Density Residential Development. 12 Ordinance No. 6463 Exhibit D, Page 9 of 26 EAST MAIN REFINEMENT PLAN MIXED-USE ELEMENT MIXED-USE ELEMENT The Metro Plan designated most of the land along Main Street in the East Main area Medium Density Residential with a Mixed-Use Overlay. The Metre-Springfield Comprehensive Plan gives little direction to local jurisdictions on how to implement the Mixed-Use designation. Where compatibility issues can be addressed it may be beneficial to maintain a mixture of uses. This designation is intended to recognize the existing mixture of uses and to provide direction for future development in mixed-use areas. CRITERIA FOR MIXED-USE REFINEMENT PLAN DESIGNATION 1) Generally, the Mixed-Use refinement plan designation may be applied under the following circumstances: A) At least 50% of the lots within the proposed Mixed-Use area have buildings; B) There is a mixture of legally established uses; C) None of the other standard refinement plan designations recognize existing development patterns; D) The existing zoning of a majority of the lots is in conflict with the Meatr D'-n P-r the nn�Mixed- Use Plan designation is Mixed Use; and E) The area to be designated must be at least three acres in size, so that compatibility and design issues can be addressed comprehensively. GOAL 1) Recognize areas which have a mixing of uses and allow for flexibility or design for larger vacant areas that are surrounded by mixed uses. POLICIES 1) All uses shall comply with development standards of the underlying zoning as specified by the Springfield Development Code and this Plan. 2) AREA#2 A) The following land uses are allowed under Community Commercial zoning: • Medium and High Density Residential • All Community Commercial uses subject to Article 18 [now Section 3.2.300] of the Springfield Development Code. B) All properties shall be legislatively rezoned to Community Commercial except as stated in section D below. C) Light Medium Industrial uses shall be permitted as follows: a Development Area Plan of at least one acre shall be prepared in accordance with Plan Implementation Policy #3, prior to rezoning to Light Medium Industrial. Upon completion of the rezone Light Medium Industrial uses shall be subject to provisions of Article 20 [now Section 3.2.400] of the Springfield Development Code. D) Allow for the continued Industrial use of developed industrial properties by maintaining the Light- Medium Industrial zoning where: A) Existing zoning is industrial; and B) The true cash value of industrial buildings on the site exceeds the true cash value of the land itself. 14 Ordinance No. 6463 Exhibit D, Page 10 of 26 EAST MAIN REFINEMENT PLAN COMMERCIAL ELEMENT COMMERCIAL ELEMENT Commercial activity in the East Main area has been centered on Main Street. Traffic generated by individual commercial activities along Main Street creates hazardous driving situations and extends the distance needed to travel between shopping destinations. By encouraging commercial centers rather than strip commercial development a number of benefits can be attained: traffic is routed off the street into a centralized parking area, this allows shoppers to visit a number of shops without driving between them, slows traffic, and creates an internal circulation pattern, relieving pressure on the streets. These shopping centers are generally located near a large support population, decreasing the travel time and energy spent traveling to the shops. CRITERIA FOR COMMERCIAL REFINEMENT PLAN DESIGNATION 1) Generally, the Community Commercial refinement plan designation shall be applied under the following circumstances: A) Where it is not an intrusion into well-maintained residential neighborhoods; B) Where it does not increase conflict between Low Density Residential and Commercial; C) Where criteria for designating Medium Density Residential land does not apply; D) Where legally created commercial uses exist; E) Where adequate customer and service access to an arterial street can be provided; however, access to a collector street may suffice if safe and efficient access can be provided and if the access point (on the collector street) is within one quarter mile of an arterial street; and F) Where designated Gern me FGial en the MetF) DlaR DiagFan GOAL 1) Provide for commercial centers which meet the needs of the community, increase transportation efficiency and safety, and improve the appearance of the area. POLICIES 1) Where safe and efficient vehicular access can be provided, encourage the development of neighborhood or small commercial shopping centers at the intersections of collector streets and Main Street. 2) Apply site-specific Commercial refinement plan designations to clearly define the limits of new commercial uses where there is not an existing, legally established, and beneficial mixing of uses. 3) Reduce the number of vehicular access points and require the rebuilding of curbs and installation of sidewalks and street trees along Main Street, through the Site Plan Review process and in public improvement projects. 4) Provide buffering between commercial and residential uses through Article 31 [now Section 5.17.100 of the Springfield Development Code, Site Plan Review process]. 16 Ordinance No. 6463 Exhibit D, Page 11 of 26 EAST MAIN REFINEMENT PLAN INDUSTRIAL ELEMENT INDUSTRIAL ELEMENT Industrial development in east Springfield has centered around Weyerhaeuser's Springfield operations, occupying over 200 acres. Residential and commercial development haphazardly followed Weyerhaeuser into the East Main area, once considered far from the city center. This unfortunate mixture of uses has created conflict. Residents of the area complain of the smell of the pulp mill, and commercial ventures covet the industrial land that fronts on Main Street. As these pressures build it becomes increasingly important to assure the availability of land for the expansion of industrial uses and the compatibility of those industrial uses with neighboring residential and commercial property. CRITERIA FOR INDUSTRIAL REFINEMENT PLAN DESIGNATION 1) Generally, industrial refinement plan designations shall be applied under the following circumstances: in Cac4 �Aain 94A�_Encourage large blocks of Heavy Industrial land. C-} Recognize existing Light-Medium Industrial uses, and consider applying the Light-Medium Industrial refinement plan designation as a buffer between Heavy Industrial and Residential refinement plan designations. 94Q_Minimize areas where Industrial and Residential designations abut. GOAL 1) Encourage the location of new and expanding industrial development in the East Main area which is compatible with surrounding uses. POLICIES 1) The City shall encourage efforts of various agencies to attract new and retain existing jobs and businesses. Implementation The City shall maintain a current inventory of vacant commercial and industrial land and structures within the East Main area. 2) To avoid a piecemeal approach to compliance with off-site improvements required by Site Plan Review, the City shall work with Weyerhaeuser to develop an off-site improvement plan. 3) Where Heavy Industrial Plan Designations abut residential uses, a 20-foot wide buffer with vegetative screen shall be required. Implementation A) The mechanism which shall trigger the installation of this buffer shall be when a new or expanding industrial use is proposed to come within 100 feet of a residential district. 17 Ordinance No. 6463 Exhibit D, Page 12 of 26 EAST MAIN REFINEMENT PLAN ENVIRONMENTAL DESIGN&RECREATION ELEMENT RECREATION Within the East Main area there are no neighborhood parks. Neighborhood parks satisfy the recreational needs of the local area, i.e., the neighborhood population. However, Bob Artz Memorial Park, a community park, is also intended to serve the needs of the surrounding neighborhood. Bob Artz Memorial Park is not easily accessible to the residents south of Main Street, thus leaving the neighborhoods south of Main Street unserved by neighborhood parks. The population within the East Main Area according to the 1980 Census, was 4,385. The Willamalane Comprehensive Plan standard for neighborhood parks is 2 acres of park for every 1,000 residents. Since approximately 75% of the population is south of Main Street, the Willamalane Standard would suggest that there is a need for 6 acres of neighborhood park area south of Main Street. There are sites within the area which might be available to help fill the need for neighborhood park facilities. Within the East Main area a number of planned unit developments were constructed which included required open space. These private open spaces are currently undeveloped and poorly maintained. If properly maintained as public open space, these sites could fill a need within the surrounding neighborhood. Criteria for Parks PublicLand and& Open Space Refinement Plan DesignationLO 1) The ems-Public Land and&Open Space designation shall be applied under the following circumstances: A) Where public and private educational facilities, parks, cemeteries and golf courses exist; B) For public offices, libraries and similar uses located in areas designated residential on the Springfield Comprehensive Plan Map e#a o4,n nice ; G) Where designated_ ;c D;arLc ;—;Rd QPeR Qr»no nn tho Metre Dlap F_)Magram; and S-}�Where there is a need to protect significant natural features from development. Goal 1) Continue to develop recreational facilities which fill the needs of the local area. Policies 1) Encourage the inclusion of private and public parks, open space, and related recreational facilities in all residential developments. Implementation The following shall be considered by the City and Willamalane. A) Dedication of Open Space areas for public use in all residential developments. B) In-lieu of dedication, assessment of a development fee to be deposited in a trust fund for park development in the area. C) Consider the transfer of density in all residential developments. This would allow an area to be retained as park land or open space by transferring the number of units from the preserved area to another area of the development, thus increasing densities on the remaining residential land. 10 Ordinance XXX changed the name of the plan designation from Parks and Open Space to Public Land and Open Space. 21 Ordinance No. 6463 Exhibit D, Page 13 of 26 EAST MAIN REFINEMENT PLAN ENVIRONMENTAL DESIGN&RECREATION ELEMENT 2) The City and Willamalane Park and Recreation District shall insure that adequate parks and recreational facilities are provided to residents of the East Main area, in accordance with the Willamalane Comprehensive Plan and other adopted plans. 3) The City shall coordinate discussions between property owners and Willamalane to ensure that the open space facilities within the existing Planned Unit Developments are properly developed and maintained. (See Public Features map.) Implementation A) If the property owners are unable to maintain the open space, a contract for maintenance by Willamalane shall be entered into between the property owners and Willamalane, or B) The open space shall be dedicated to Willamalane for the purpose of providing neighborhood parks in the area. C) These open spaces shall be designated Public Land PaFks and Open Space on the Refinement Plan Diagram, and legislatively rezoned to PLO. 22 Ordinance No. 6463 Exhibit D, Page 14 of 26 MID-SPRINGFIELD REFINEMENT PLAN (Interim Printing June 2023) Prepared by: Development and Public Works Department City of Springfield SPRINGFIELD OREGON ADOPTION DATES: City of Springfield —July 21, 1986 TEXT AMENDMENT DATES: March 2, 1992 May 17, 1999 July 17, 2006 DIAGRAM AMENDMENT DATES: March 2, 1987 June 18, 1990 March 2, 1992 September 21, 1992 March 6, 1995 May 15, 1995 May 17, 1999 December 6, 1999 December 9, 2002 July 18, 2005 July 17, 2006 Ordinance No. 6463 Exhibit D, Page 15 of 26 MID-SPRINGFIELD REFINEMENT PLAN INTRODUCTION INTRODUCTION PURPOSE The Mid-Springfield Refinement Plan will replace the Mid-Springfield Neighborhood Plan ;;Adwillhe rloricinnc fnr 4ho Mir SpFiRgfield areas. The primary reasons for revising this plan are: 1) to assign site- specific Mixed-Use p-Plan designations 0A areas 6igRatedMixed USe" GR +ho Metro DlaR Diagram; and 2) to recognize the needs of industrial and commercial land uses and to resolve conflicts with residential neighbors. The boundaries of the planning area have been expanded to include additional industrial areas. MetFe Plan PliagFa m as paFt of the Revd MetF e DlaR update OR 1987 QQ Residential, Commercial and Industrial users of land in Mid-Springfield will be particularly interested in the "goals and policies" section of the plan as it addresses future development in the area. A "goal" is a statement of the general direction the City intends to follow. A"policy" is a statement mandating the direction that the City and private developers must follow in making land use decisions and developing property. Information about existing facilities, services, and conditions in the planning area are found under the "findings" heading. Findings serve as the factual basis for the policies in this plan. In addition to serving as a refinement plan and an information source, the plan will be a guide to local decision-makers when dealing with area issues. It will be a valuable tool for commissions, committees and neighborhood groups regarding capital improvements, budgeting, block grant allocations and neighborhood self-improvement actions. are beiRg made RGW OR E)rrdor to r Feyide !creator GeFtaiRty OR the fi t ire RELATIONSHIP TO OTHER PLANS COMPREHENSIVE PLANS The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan amendment to establish a Springfield urban growth boundary and adopt a city-specific residential element (chapter). The City has since added more elements to the Springfield Comprehensive Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city- specific goals, policies, and implementations strategies to inform land use decisions within the Springfield urban growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield's applicable comprehensive plans. Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield Comprehensive Plan. 1 Ordinance No. 6463 Exhibit D, Page 16 of 26 MID-SPRINGFIELD REFINEMENT PLAN INTRODUCTION The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter II-G and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07). The Springfield Comprehensive Plan Map includes the plan designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting amendments since the Refinement Plan's original adoption and some minor plan designation name changes is included prior to the Table of Contents in this document. The original Refinement Plan Diagram is retained on page 5 for historical reference. NEIGHBORHOOD REFINEMENT PLANS Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive Plan. Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate changes made through adoption of more recent plans. For example, adoption of Springfield's Transportation System Plan resulted in changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally prevails. DESCRIPTION The Mid-Springfield Refinement Plan covers the area bordered on the west by the railroad spur that parallels 28th St., the eastern edge is 42nd St., the southern border is the Southern Pacific track, and the northern boundary is the Eugene-Springfield Freeway. Within the plan boundaries are three residential neighborhoods: Adams Plat, North Main, and South Main. HISTORY Pre-World War II Springfield maintained a small-town demeanor. The center of Springfield was on Main Street near the river, and industry was to the northwest of the Main Street retail area and to the south of the millrace (Booth-Kelly Mill). Residences were located to the north of the retail center. Only a few residences were scattered among the filbert orchards east of 281h Street. In 1940, the population of Springfield was 3,805, having increased by only 1,300 in the previous 30 years. In 1948, the Weyerhaeuser Company arrived in Springfield and in 1949, Booth-Kelly enlarged and modernized its mill. By 1950 Springfield had grown to 10,087. In 1960 the Mid-Springfield area was annexed to the City of Springfield. At that time it was a rapidly developing area that lacked public service such as storm and sanitary sewers, parks, and fully improved streets. Springfield is still in the process of providing the full range of urban services to an area that developed under county standards. Since the adoption of the Mid-Springfield Refinement Plan in July 1986, several significant planning activities have occurred which have a direct impact on the implementation policies in this Plan. These activities include the update of the Metro Plan, adopted in April 1987; adoption of TransPlan in July 2001; and adoption of Article 40 Mixed-Use Zoning Districts [now Section 3.2.600] and Article 41 /Nodal Development Overlay District [now Section 3.3.1000] in 2002. (Paragraph added by Ordinance Number 6178; Adopted July 17, 2006.) The Mid-Springfield Refinement Plan Diagram was the basis for the Springfield Comprehensive Plan Map. 2 Ordinance No. 6463 Exhibit D, Page 17 of 26 MID-SPRINGFIELD REFINEMENT PLAN FINDINGS AND CONCLUSIONS INDUSTRIAL 1) The mix of industrial and residential uses in the Adams Plat have resulted in conflicts between the two uses. 2) In the Adams Plat there are four gravel roads and only two fully improved streets. The storm sewers and fire flows are inadequate for further industrial development in the Adams Plat area. 3) There is inadequate visual screening between industrial and residential uses where these uses adjoin each other. 4) The lots in the Adams Plat are often too small to accommodate the need of new industrial development. 5) Screening of industrial uses from streets is inadequate. 6) The Metro Plan gives direction on the applicability of industrial designations in the Mid-Springfield area' 7) There is a need to reduce the conflicts which arise when Heavy Industrial uses locate adjacent to Residential uses. 8) Light-Medium Industrial land is acting as a buffer between Heavy Industrial uses and Residential uses in some areas of the Mid-Springfield Refinement Plan area. 9) There are no Industrial uses abutting Main Street. 10)There are industrial buildings that represent a substantial capital investment that are located in areas planned for residential or commercial use. COMMERCIAL 1) Main Street serves as a regional access route to the McKenzie River recreation corridor and to Central and Eastern Oregon and is classified as a major arterial. 2) The general appearance along Main Street is one of haphazard, unkept commercial development, with the notable exception of the development around 42nd Street. 3) With lot-by-lot strip development of Main Street there has been no coordination of design. 4) There is need for a refinement plan for East Main Street to set the limits of commercial expansion into residential areas, and to provide for certainty in the development of commercial land. 5) 42nd and Main streets is a major commercial node for East and Mid-Springfield. TRANSPORTATION i These findings supported the refinement plan adoption and have not been updated to reflect that the Land Use Element of the Springfield Comprehensive Plan Map replaces the Metro Plan Diagram Chapter II-G for areas with Springfield's UGB,which includes plan designation descriptions. 6 Ordinance No. 6463 Exhibit D, Page 18 of 26 MID-SPRINGFIELD REFINEMENT PLAN INDUSTRIAL DEVELOPMENT POLICIES CRITERIA FOR DESIGNATING INDUSTRIAL LAND 1) Applicable policies from Springfield's comprehensive plans Meer„ Plan r„l,G,es and the Metro n" shall be applied in designating land for industrial use in Mid-Springfield. 2) Encourage large blocks of Heavy Industrial land. 3) Recognize existing light-medium industrial uses, and consider applying the Light-Medium Industrial plan designation as a buffer between Heavy Industrial and Residential plan designations. 4) Minimize industrial development along Main Street. 5) Minimize areas where Industrial and Residential designations abut, except in Nodal Development Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan. (Criterion amended by Ordinance Number 6178; Adopted July 17, 2006.) 10 Ordinance No. 6463 Exhibit D, Page 19 of 26 MID-SPRINGFIELD REFINEMENT PLAN RESIDENTIAL DEVELOPMENT POLICIES of any point on the current boundary of the Neste Plant site. (Policy added by Ordinance 5616, adopted March 2, 1992.) 14)The MDR designation of this site shall be subject to re-evaluation during periodic review unless the following circumstances are found to exist: (Policy added by Ordinance 5616, adopted March 2, 1992.) a. Substantial progress has been made on the project and the project as built and operated conforms substantially to the representations concerning affordability made by the applicant during the Metro Plan amendment process; or b. An affirmative determination can be made, in light of all the circumstances, including the City of Springfield's forthcoming Housing Plan, that the property should be retained for affordable housing; and c. Examples of substantial progress shall include acquisition of bonds to finance construction, completion of site plan review and start of construction. CRITERIA FOR DESIGNATING RESIDENTIAL LAND 1) Generally the Medium Density Residential plan designation shall be applied under the following circumstances: a) To areas that are currently developed as high quality multiple-family; b) To large under-developed areas immediately adjacent to commercially designated land along Main Street; c) On the west side of 42nd Street; d) the nno+rn DlaR [Diagram Or,G161diRg Nodal development Area 9C as shown on the Potential Nodal Development Areas Map in TransPlan; (Criterion amended by Ordinance Number 6178; Adopted July 17, 2006. This Ordinance referenced Criterion 3c in relation to amending Criteria for Designating Residential Land. However, criterion 1 d as presented herein is the correct criterion.) e) To serve as a buffer between single-family and commercial uses along Main Street; 2) Generally the Low Density Residential plan designation shall be applied under the following circumstances: a) To large areas of land that are clearly single-family in character; b) To areas that have not been seriously and directly affected by pockets of industrial or commercial development; c) To areas that are not located directly on Main Street; USe") i ice eA the Meatrn Dl;;n 14 Ordinance No. 6463 Exhibit D, Page 20 of 26 Q STREET REFINEMENT PLAN (Interim Printing June 2023) Prepared by: Development and Public Works Department City of Springfield SPRINGFIELD 067 REGON ADOPTION DATE: City of Springfield — March 16, 1987 TEXT AMENDMENT DATE: June 18, 2007 DIAGRAM AMENDMENT DATES: June 18, 2007 April 16, 2018 Ordinance No. 6463 Exhibit D, Page 21 of 26 Q STREET REFINEMENT PLAN INTRODUCTION INTRODUCTION HISTORY Planning in the Q Street area has been evolving in the last 20 years. The Q Street area had been rapidly growing, leaving large areas of vacant land between developments, with little policy direction to provide for orderly development. In 1972 the Eugene/Springfield Metropolitan Area 1990 General Plan was adopted. The Q Street area was designated Low Density Residential with a strip of Medium Density Residential north of Q Street between 51h and 191h Streets. The North Springfield Community Plan, one of the first refinement plans of the newly adopted 1990 General Plan, took a closer look at the area north of the Eugene/Springfield Highway. In this plan the Q Street area was examined in more detail; the area at the corner of the 2nd/3rd Street Couplet and Q Street was designated Low-Medium Density Residential (5-10 units/acre), the area between 51h and 7th Street adjacent to Q Street was designated Neighborhood Commercial, the area south of Q Street was designated Service Wholesale, and the area between 101h and 151h streets was designated Medium Density Residential (10-15 units per acre) if certain "detailed development criteria" were met (i.e., a Development Area Plan concept). These "detailed development criteria" required such things as combining narrow tax lots into developments of no less than 3.75 acres in size, using an internal circulation pattern. The North Springfield Community Plan guided planning in the Q Street area until the adoption of the Metropolitan Area General Plan (Metro Plan) in 1980. The Metro Plan recognized the need for a community commercial center in the Q Street area and designated a section between N. 2nd and Th Streets Community Commercial (for other designations see the Metro Plan map on page II-E-25 of the Metro Plan). The Q Street Refinement Plan is the latest evolution of planning in the Q Street area. A citizen review group was formed in September of 1986 to develop a draft Q Street Refinement Plan. Shortly after the committed completed their work in late October, a neighborhood meeting was held at Page School to present the Plan to area residents. The comments received at the neighborhood meeting were forwarded to the Planning Commission at their November 5 work session. At the Planning Commission's December 3 public hearing on the Plan, the commission directed staff to get together with property owners in the area between 2nd Street and 51h Street north of Q Street, to work out a compromise to the proposed 4-acre development area concept in that area. The property owners formed a representative committee to work with staff from the Planning and Development Department. This committee met four times between mid-December and the February 41h Planning Commission public hearing. General consensus of the property owners in the area was reached on a compromise which was forwarded to the Planning Commission. makiRg Iand i ice and ri ihlin fa Gilitioc r-loricinnc fnr the Q Street area. 1 Ordinance No. 6463 Exhibit D, Page 22 of 26 Q STREET REFINEMENT PLAN INTRODUCTION PURPOSE The Q Street Refinement Plan guides local development and decisions with land use policies addressing this area's specific issues and needs. The application of site-specific plan designations is based on findings of fact and clear criteria. Refinement Plan designations, policies, and implementation actions are designed to minimize the negative impacts of development on existing residential neighborhoods and natural resources, while facilitating development consistent with applicable comprehensive plans. chill ho roflortead nn the Meatre Dl.n Diagram A "policy" is a statement mandating the direction that private developers, the City and other public agencies must follow in making land use decisions and developing property. Information about existing facilities, services, and conditions in the planning area are found under the "findings" heading. Findings serve as the factual basis for the policies in this plan. The "Plan Diagram" is a graphic depiction of site-specific land use designations, and when used in conjunction with plan policies, gives direction for development in the Q Street area. In addition to serving as a refinement plan and an information source, the plan will be a guide te Inn�l rlo`+icinn_m;;Lorc y.ghon rlo;;liAg with area icci P,; It will be a valuable tool for commissions, committees, and neighborhood groups regarding capital improvements, budgeting, block grant allocations and neighborhood self-improvement actions. speGifiG land use desigRatiGRS have beeR applied based GR pFeGise and WRdeFGtandable GFiteria PLAN RELATIONSHIPS COMPREHENSIVE PLANS The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan amendment to establish a Springfield urban growth boundary and adopt a city-specific residential element (chapter). The City has since added more elements to the Springfield Comprehensive Plan. The Springfield Comprehensive Plan is the local long- range comprehensive plan that establishes city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield urban growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield's applicable comprehensive plans. Metro Plan Chapter I explains the relationship between its broad policy framework, city-specific comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield Comprehensive Plan. 2 Ordinance No. 6463 Exhibit D, Page 23 of 26 Q STREET REFINEMENT PLAN INTRODUCTION The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter II-G and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07). The Springfield Comprehensive Plan Map includes the plan designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting amendments since the Refinement Plan's original adoption and some minor plan designation name changes is included prior to the Table of Contents in this document. The original Refinement Plan Diagram is retained on page 15 for historical reference. NEIGHBORHOOD REFINEMENT PLANS Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive Plan. Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate changes made through adoption of more recent plans. For example, adoption of Springfield's Transportation System Plan resulted in changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally prevails. Ordinance No. 6463 Exhibit D, Page 24 of 26 Q STREET REFINEMENT PLAN CRITERIA FOR PLAN DESIGNATIONS CRITERIA FOR PLAN DESIGNATIONS The Criteria for Plan Designations are the basis for assigning site specific land use designations in the Q Street Area. In areas where one set of criteria clearly applies the corresponding plan designation shall apply. In certain areas one set of criteria may not clearly predominate. If this occurs, other factors such as r^etm tea-need for a specific type of land use shall be considered and entered into the findings which support these designations. All designations shall be consistent with policies from applicable Metre comprehensive planpel+s+es. COMMERCIAL 1) The CGommunity Commercial plan designation shall be applied to areas adjacent to existing Ceommunity Csommercial on the Springfield Comprehensive Plan Map MiQtrp Pier, Diagram or an area of four acres or larger not adjacent to Community Commercial GR the MetFG DlaR niagi: In both cases, the following circumstances must predominate: a) Where it is not an intrusion into well-maintained residential neighborhoods; b) Where it would not increase land use conflicts between Low Density Residential and Community Commercial land uses; c) Where legally established, pre-existing commercial uses exist; d) Where adequate customer and service access to an arterial street can be provided; however, access to a collector street may suffice if safe and efficient access can be provided and if the access point (on the collector street) is within one quarter mile of an arterial street; e)7 nFeas that are de GigRated GGrn mornial Grp Oho MetFe DlaR [Diagi:arn 2) The General Office refinement plan designation may be applied in areas with existing Residential MtQtre Plan designations V.Ai+h„11+ ;;l+oriRg the Metre Plan honoral l aAd Use Diagram. To create or expand an area with this refinement plan designation, the following criteria must be met: a) The area of the designation must be adjacent to a boundary between Residential and Community Commercial or Major Retail Commercial nn�p-Plan designations. b) An area must be at least one acre in size to receive the General Office refinement plan designation. c) A General Office designated area shall not be created or expanded to greater than 1.5 acres in size unless the development area abuts a collector or arterial street. Ordinance No. 6463 Exhibit D, Page 25 of 26 Q STREET REFINEMENT PLAN CRITERIA FOR PLAN DESIGNATIONS d) A General Office designated area shall not be created or expanded greater than 5 acres in size. RESIDENTIAL 1) The Low Density Residential plan designation shall be applied where the following circumstances predominate: a) Areas that are primarily developed as single family; b) Areas that are not intermixed with community commercial development; c) Areas that are not located directly on arterial streets; y� �� d) Areasthat arre-ce�nuted Cc�^v�ceRSity e�eA i;_31 A_.A th eater Thar 2) The Medium Density Residential plan designation shall be applied where the following circumstances predominate: a) Areas that are primarily developed as high quality Medium Density Residential; b) Areas that are designated Meadi,,rn floncity ReSi deRtial er adjacent to Medium Density Residential designations, on the Metro Plan diagr,n,; c) Areas that could serve as a buffer between Low Density Residential and Community Commercial; d) Areas that are within one-half mile of a transit transfer station. 3) The High Density Residential plan designation shall be applied where the following circumstances predominate: a) Areas that are primarily developed as high quality High Density Residential; b) Areas that are designated Nigh DeRSity Residential er are adjacent to High Density Residential designations ^n the Meatre Plan Diagr,rr, c) Areas that are within one-half mile of a transit transfer station; d) Areas that are within one-half mile of large Community Commercial centers; e) Areas which can meet the solar setback requirements and other Development Code standards; f) Areas that are within one quarter mile of an arterial or collector street. Ordinance No. 6463 Exhibit D, Page 26 of 26 Q STREET REFINEMENT PLAN POLICIES POLICIES COMMERCIAL 1) Provide vacant and re-developable land to allow for the expansion of commercial uses, and to encourage new commercial development. 2) Encourage commercial shopping centers—as opposed to isolated or strip commercial uses to achieve: 1) Increased design flexibility; 2) Minimize the impacts of commercial development on adjacent residential neighborhoods, and 3) Reduce the number of access points on arterial and collector streets. 3) Where safe and efficient vehicular access can be provided, encourage the development of commercial shopping centers at the intersection of minor arterials and Q Street (a collector). 4) The development of a community commercial center at the northeast corner of the Couplet and Q Street would require a number of traffic and highway facility improvements, similar to those in the traffic impact study which has been prepared for the area. All such traffic improvements rest with the developer. 5) Apply site-specific Commercial plan designations to clearly define the limits of commercial uses. 6) Apply site plan review conditions (Article 31, Springfield Development Code) [now Section 5.17.100] to commercial development to: 1) Improve the appearance of Q Street area; and, 2) Minimize conflicts with residentially-designated areas. 7) Reduce the number of curb cuts and require the rebuilding of curbs through the site plan review process, especially along Q Street. Joint access shall be required of Residential Professional uses on land zoned Low Density Residential within the Plan Designation of Community Commercial. 8) The expansion of existing or location of new Neighborhood Commercial shall occur according to the Neighborhood Commercial locational criteria contained in the Land Use Element of the Springfield Comprehensive PlanMetr Plan pane 1I a 9) The General Office refinement plan designation establishes areas to which the GO - General Office zoning district may be applied. Areas so designated serve as transition zones, buffering residential development from more intensive commercial development in areas with commercial plan designations. The General Office refinement plan designation provides appropriate locations for business and professional offices such as financial, insurance and real estate services. RESIDENTIAL 1) The City shall actively participate in efforts to maintain and enhance existing residential neighborhoods and attract compatible medium and high density residential developments that would enhance and benefit the Q Street area. This Ordinance No. 6463 Exhibit E, Page 1 of 11 Exhibit E Downtown Refinement Plan Amendments (Springfield-only adoption) Downtown Refinement Plan: • Replace the Parks and Open Space designation with a Public Land and Open Space designation, as shown on the Refinement Plan Diagrams in Exhibit A, and where referenced in the text, as shown in track changes on the following pages • Replace the Nodal Development/Mixed Use base designation with a Mixed Use base designation, as shown on the Refinement Plan Diagrams in Exhibit A, and where referenced in the text, as shown in track changes on the following pages • Apply Nodal Development as an overlay to the Mixed Use base designation as shown on the Refinement Plan Diagrams in Exhibit A, and where referenced in the text, as shown in track changes on the following pages • Replace reference to the Metro Plan Diagram with reference to the Springfield Comprehensive Plan Map and replace reference to Metro Plan text with reference to the Springfield Comprehensive Plan, as shown in track changes on the following pages • Add text referencing the Springfield Comprehensive Plan to make the distinction between the Metro Plan and/or relationship to refinement plans, as shown in track changes on the following pages • Clarify the policies of the Public Spaces Element by retaining the new policies presented in Ordinance 6148 (2005) and deleting the policies first adopted with the original Refinement Plan in 1986 as shown on the following pages. Ordinance No. 6463 Exhibit E, Page 2 of 11 DOWNTOWN REFINEMENT PLAN Prepared by: Development and Public Works Department City of Springfield SPRINGFIELD OREGON ADOPTION DATE: City of Springfield — February 18, 1986 TEXT AMENDMENT DATES: November 7, 2005 DIAGRAM AMENDMENT DATES: September 22, 1986 May 14, 1987 December 21, 1987 November 7, 2005 Ordinance No. 6463 Exhibit E, Page 3 of 11 DOWNTOWN REFINEMENT PLAN INTRODUCTION Public Works Department, and the citizens of Springfield. This Plan will be used by the City, other government agencies, and the community as a policy guide for revitalizing Downtown Springfield and will also be a source of useful information. The City of Springfield shall use this plan when conducting site review of development projects in the Downtown area. This update of the Downtown Refinement Plan is significantly influenced by the outcome of the Station Area Plan project. That effort began in 2000 and concluded with the publication of the Springfield Station Specific Area Plan in July, 2001. Included in that plan were a number of recommendations for new and revised policies; additions and deletions to the projects lists; and replacement of existing conditions descriptions with more contemporary language. The project participants included Silva Sullivan, Susan McCallum, Michael Buckridge, Ralph Smeed, Beto Rubio and Don Moloney, Downtown business/property owners; Bill Carpenter and Sean Wilson, Planning Commission; Mark Pandborn, LTD; Tom Draggoo, Springfield Chamber of Commerce; Dennis Shine, Community-at-large; Tom Boyatt, ODOT; Elizabeth Ledet, Oregon TGM program; and Mark Metzger and Cynthia Pappas, Springfield Staff. (Paragraph added by Ordinance Number 6148; Adopted November 7, 2005.) The Plan boundaries encompass the area bordered by the Willamette River on the west; the Washburn Historic District and the East Kelly Butte Neighborhood on the north, 101h Street on the east, and the Mill Pond and the Mill Pond and Booth-Kelly Mixed-Use Area under City ownership on the south. (Paragraph added (replaced prior last paragraph) by Ordinance Number 6148; Adopted November 7, 2005.) RELEVANT PLANNING ACTIVITY IN THE DOWNTOWN AREA City planning in Springfield was in its infancy in 1947 when the City passed the Comprehensive Zoning Plan of the City of Springfield. In 1950 the long-range street program, A Master Plan for Street and Highway Development, was adopted. Other plans in effect during this period included storm drainage and street lighting plans. During the late 1950's planning became more involved with the development of Direction for Development—A Workable Program for Urban Renewal and in 1959, the Development Plan: Eugene-Springfield Metropolitan Region. The first mention of Downtown's special problems is in the 1968 Core Area Plan by Lutes and Amundson. This document was comprehensive study of the Core Area including field surveys, inventories, findings and recommendations, and goals and objectives. This plan covered the area bounded by North B Street, 81h Street, South A Street, and 31d Street. In 1972, A Plan for Downtown was adopted by the City Council. This document emphasized land use, circulation, and public facilities. The size of the area covered by this plan was expanded from that covered by the Core Area Plan to include C Street and Island Park. The increased plan area reflects the changing perception of the "Downtown". The Metro Area General Plan was adopted and acknowledged in 1982. Since that time, it has been the primary policy document for Downtown Springfield. 2 Ordinance No. 6463 Exhibit E, Page 4 of 11 DOWNTOWN REFINEMENT PLAN INTRODUCTION In 1984 there was a flurry of activity related to planning for the Downtown area. In February the Springfield Downtown Commission submitted the Downtown Tomorrow report. This report makes specific recommendations concerning tasks to be undertaken to establish an attractive and healthy Downtown. In March, the National Main Street Resources Team finished their document, the Resource Team Report for Springfield, Oregon. In June of 1984 Jerome Diethelm, completed the Conceptual Landscape Plan. The Conceptual Landscape Plan built on the ideas outlined in Downtown Tomorrow and offered numerous design suggestions. Both the Conceptual Landscape Plan and Downtown Tomorrow include the Booth-Kelly site in their description of Downtown. Since adoption of the Downtown Refinement Plan in February 1986, several significant planning activities have occurred which have a direct impact on the implementation of the policies in this Plan. These activities include adoption of the Booth-Kelly Mixed-Use District in July, 1986; adoption of a Concept Plan for Booth-Kelly in 1989; the update of the Metro Plan, adopted in April, 1987; the Station Area Specific Plan, completed in July, 2001; adoption of TransPlan in July, 2001; adoption of Article 40 Mixed-Use Zoning Districts [now Section 3.2.600 of the Springfield Development Code] and Article 41 Nodal Development Overlay District [now Section 3.3.1000 of the Springfield Development Code] in 2002, and adoption of Willamalane's Park and Recreation Comprehensive Plan in November, 2004. (Paragraph added by Ordinance Number 6148; Adopted November 7, 2005.) The Downtown Refinement Plan Diagram was the basis for the Springfield Comprehensive Plan Map. RELATIONSHIP TO OTHER PLANS COMPREHENSIVE PLANS The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan that establishes the broad policy framework upon which Springfield, Eugene, and Lane County make coordinated land use decisions within the Eugene-Springfield Metropolitan planning area. In 2011, Springfield began to create its own Comprehensive Plan, which started with a Metro Plan amendment to establish a Springfield urban growth boundary and adopt a city-specific residential element (chapter). The City has since added more elements to the Springfield Comprehensive Plan. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield urban growth boundary. Together, the Metro Plan and Springfield Comprehensive Plan serve as Springfield's applicable comprehensive plans. Metro Plan Chapter I explains the relationship between its broad policy framework, city- specific comprehensive plans, and refinement plans. Some Springfield Comprehensive Plan elements explicitly supplant the relevant portion of the Metro Plan while others supplement the Metro Plan. For information about how the different elements of the Metro Plan apply to Springfield, see the Preface of the Springfield Comprehensive Plan. The City and Lane County co-adopted a Springfield Comprehensive Plan Land Use Element and Springfield Comprehensive Plan Map, which replace the text in the Metro Plan Diagram Chapter 11-G and remove the plan designations shown on the Metro Plan Diagram for areas within Springfield's urban growth boundary. These amendments were adopted by Springfield City Council in 2023 and the Lane County Board of 3 Ordinance No. 6463 Exhibit E, Page 5 of 11 DOWNTOWN REFINEMENT PLAN INTRODUCTION Commissioners in 2024 (Springfield Ordinance No. XXXX, and Lane County Ordinance No. PA 1390 and Ordinance No. 23-07). The Springfield Comprehensive Plan Map includes the plan designations from adopted Neighborhood Refinement Plan Diagrams. An updated Refinement Plan Diagram reflecting amendments since the Refinement Plan's original adoption and some minor plan designation name changes is included prior to the Table of Contents in this document. The original Refinement Plan Diagram shown in Map 4 is retained for historical reference. NEIGHBORHOOD REFINEMENT PLANS Neighborhood refinement plans often have more specific policies than those in the comprehensive plans due to more detailed analysis of neighborhood needs and aspirations. In these cases, the more specific or restrictive policies typically prevail. In the case of an actual conflict between plan policies, the Springfield City Council has the authority to interpret the provision that prevails, to give maximum effect to the overall policies and purposes of the Springfield Comprehensive Plan. Some neighborhood refinement plans, created decades ago, have not been fully updated to incorporate changes made through adoption of more recent plans. For example, adoption of Springfield's Transportation System Plan resulted in changes to the functional classification of some streets which were not incorporated into the Neighborhood Refinement Plans. In such cases, the more recently adopted plan generally prevails. 4 Ordinance No. 6463 Exhibit E, Page 6 of 11 DOWNTOWN REFINEMENT PLAN LAND USE ELEMENT Revitalize the Downtown with New Uses. Create new opportunities for office, commercial, residential, civic, and mixed uses. Encourage high-density uses that are transit-oriented and located within a short walk from Springfield Station. Ensure Adequate Parking. Provide parking that supports a vital downtown. Create Civic Gathering Places. Create great public spaces, both large and small. Consider creation of a town square. Identify Catalyst Projects. Identify projects that will spur growth in the downtown, including improvements that can be successfully accomplished in the short term. Create Downtown Partnerships. Collaborate with Lane Transit District, the Springfield Renaissance Development Corporation, and other groups to coordinate efforts and build community support. Establish a Possible Identity for the Downtown. Work with downtown business interests and the Springfield community to foster a positive identity and sense of pride for the downtown. Develop the Downtown as the Gateway to Springfield. Work to achieve a visual impression in the Downtown that reflects well on the rest of the city. POLICIES A) General (Amended by Ordinance Number 6148; Adopted November 7, 2005.) 1) The City shall actively work to enhance the redevelopment and diversity of Downtown by promoting mixed use development within the downtown blocks, on single or aggregated tax lots, and within individual buildings. Emphasis should be directed towards expanding retail, entertainment and office opportunities and increasing residential uses above ground-floor businesses. Implementation The MetrepelmtaR RQ;; (�onorro1 RaR diagram aPA-Downtown Refinement Plan Diagram- shall be amended to designate the Mixed Use Area as Nodal Development/Mixed-Use area to Mixed Use with an overlay of Nodal Development, except that the two-block area between 81h and 101h Streets and the block between 7th and 8th Streets on the north side of A Street shall remain Mixed-Use Commercial. All private property within the Ned.ai DAVAIGr,MeRt/Mixed -Use plan diagrarn designation shall be fezoned Mixed-Use Commercial (MUC) except existing multi-family residential use shall be rezoned Mixed-Use Residential (MUR). Property outside the Pedal deSigRatiGRNodal Development overlay but within the newptewp Mixed Use area may be zoned either Mixed-Use Commercial or Community Commercial. All publicly owned property within the "Weal 11Q 4Q'^P'';eRt�Mixed.e Use plan designation may be zoned Public Land and Open Space (PLO). 2) Civic and governmental uses serving the Springfield community shall be encouraged to locate in the Downtown area. Within the downtown, governmental uses, including City Hall, the Justice Center and Jail, the Library, Willamalane and SUB Offices, shall be encouraged to locate and expand along A Street. Other civic uses or public places, 13 Ordinance No. 6463 Exhibit E, Page 7 of 11 DOWNTOWN REFINEMENT PLAN LAND USE ELEMENT such as theaters, parks, museums, plazas, and other sites of public interest, should be dispersed throughout downtown to encourage walking from place to place, provide visual contrast to the built environment, and compliment adjoining businesses. B) Downtown Mixed Use Plan DesignationArea and Nodal Development Overlay (Amended by Ordinance Number 6148; Adopted November 7, 2005.) 1) The Mixed-Use Commercial bland use district shall be applied within the nodal overlay to accommodate a mix of commercial, offices, residential, and open space uses. Design and development standards shall promote a minimum of 2-story buildings with pedestrian-friendly design and placement. The Mixed-Use Residential bland use district shall be applied within the nodal overlay area to property currently occupied exclusively by multi-family residential uses. The Public Land and Open Space land use districts may be applied within this area to all land owned by the City of Springfield, Willamalane Park and Recreation District and the Springfield Utility Board. Commercial property in the DewAtAvAp Mixed ®Use boundary, but outside the nodal overlay may be zoned Mixed-Use Commercial or Community Commercial. 2) Multi-family residential shall be allowed as the sole use of a building or as one of several uses permitted within a mixed-use building or development area. Multi-family housing within 3 blocks of Springfield Station shall have a minimum density of 12 dwelling units per acre. Residential use within a mixed-use building is exempt from this density standard. 3) Development along edges of the Downtown Refinement Plan area should include design and development features that promote compatibility and transition to adjacent uses. 4) At the time of Zoning Map amendment to a specific mixed-use zone permitted within the Devptewp Mixed ®Use area, the presence of any lawful use that would then not be permitted within that zone shall be considered a pre-existing permitted use. This may continue or expand, regardless of ownership transfer, unless abandoned for 6 months or more as specified in Springfield Development Code Article 5 [now Section 5.18.100], Non-Conforming Use. C) Booth-Kelly Development Area (Amended by Ordinance Number 6148; Adopted November 7, 2005.) (Refer to Plan Diagram) 1) The Booth-Kelly Development Area (BKDA), as depicted on the Downtown Refinement Plan Diagram, generally includes the area lying directly adjacent to and south of the Mill Race Restoration Area (as described below). 2) A conceptual development plan(s) shall be prepared for the entire Booth-Kelly Development Area and reviewed by the Planning Commission prior to development (including partitioning or subdividing) occurring on the side. Development proposed for the site shall normally have a development area of at least 10 acres and comply with an approved conceptual development plan; development of a smaller size may be appropriate if consistent with the conceptual development plan. The conceptual development plan and any subsequent modifications shall comply with the following policies, and be kept on file in the Planning and Development Department. The conceptual development plan for the Development Area shall: a) Redevelopment of the site should be sensitive to the natural and historic features of the site, particularly the Mill Race, Mill Pond, riparian vegetation and forested slopes; 14 Ordinance No. 6463 Exhibit E, Page 8 of 11 DOWNTOWN REFINEMENT PLAN LAND USE ELEMENT PLAN DIAGRAM DESIGNATIONS When used with the policies and implementations contained in the text of this plan, the Plan Diagram designations provide direction for decisions pertaining to appropriate redevelopment, urbanization of vacant parcels, and increased use of underdeveloped parcels. Public Landa*s and Open Space This designation includes existing publicly owned metropolitan parks, regional scale parks, and publicly owned area of significant natural vegetation. The Mill Race is included because it is intended as an important open space element of the downtown. This designation also includes major governmental and utility office complexes and facilities. Heavy Industrial This designation includes industries which are generally involved in the primary processing of raw materials such as: lumber and wood products, paper, chemicals and primary metal manufacturing, power plants, and railroad yards. (For further information see the nno+ LQ;; GeReFal Pl aR page " E 'Land Use Element of the Springfield Comprehensive Plan) Downtown Mixed Use Area and Nodal Development Overlay This designation encourages a mixing of compatible uses, including residential, commercial, office/professional and urban open space. Booth-Kelly Development Area This designation includes the following general uses; all campus industrial, office, light- medium industrial, tourist commercial, service and retail commercial, medium density residential (minimum 12 dwelling units per acre), parks and recreation, educational facilities, regional designation, other uses compatible with a conceptual development plan and with other criteria outlined in the Booth-Kelly Development Area policies. 18 Ordinance No. 6463 Exhibit E, Page 9 of 11 DOWNTOWN REFINEMENT PLAN ACCESS,CIRCULATION,AND PARKING ELEMENT ACCESS, CIRCULATION, AND PARKING ELEMENT This element looks at access, circulation, and parking for all modes of travel to and through the Downtown. The intent of this element is to identify opportunities to create or improve the systems used to move people and goods efficiently, to recognize the important role parking plays on the success of Downtown endeavors, and to emphasize the key significance of a safe and inviting pedestrian environment. The major access routes to the Downtown are Main and South A Streets and Pioneer Parkway East and West. The Main-South A couplet is the major carrier of east-west traffic while the Pioneer Parkway couplet performs the same function for north-south traffic. Additional principal elements of the Downtown's grid system of streets include Mill Street 51h 71h and 101h as secondary north-south conduits, and A and B Streets as east-west collectors. Although the remaining streets in the grid are classified as "local," they, along with the network of alleys throughout most of the mid-blocks, provide excellent access and direct line of travel for inhabitants, visitors, and customers of the Downtown, regardless of selected travel mode. A number of positive changes have occurred to this system since the adoption of the Downtown Plan 1986. Among the more noteworthy area: • Construction of"bulb-outs" on Main and South A; • Construction of separate left turns for Mill and Pioneer Parkway East; • Right turn lane and entry improvements on Fifth into Booth-Kelly Center; • Relocation of Springfield Station to South A between 41h and Pioneer Parkway East; • Commencement of Bus Rapid Transit along Main-South A; • Completion of Environmental Impact Statement for BRT on Pioneer Parkways; • Designation by ODOT of Main Street as a Special Transportation Area; • Construction of a bike/ped path in Pioneer Parkway median; and • Pedestrian crossing of South A to the new Transit Station. As beneficial as these improvements have been, more work needs to be performed to improve the pedestrian environment. The City has begun a project along Main Street to place benches and planters at regular intervals. This same effort should be expanded along the north-south streets and along both "A" Streets. Pedestrian level lighting also is proposed for Main Street and should be expanded to the same manner as the street furniture program. Bicycle opportunities are less than desirable as the Downtown currently has no designated, striped east-west routes. Shared sidewalks with pedestrians or streets with cars does not engender this efficient travel alternative. Several bikeway projects have been identified in the Springfield Bicycle Plan. Willamalane's Park and Recreation Comprehensive Plan and TransPlan (TP), including TP Project 830, Main and South A, striped lane, Springfield bridges to east UGB; TP Project 840, Mill Race Path, multi-use path, S. 2nd to S. 281h; and TP Project 837, striped lane, Mill Street, South A to Fairview Drive. All of these projects are "un-programmed" that is no source of money was identified to construct these improvements therefore they are on indefinite hold. The City should establish a high priority for these projects to enable funding and construction in the near-term. As an additional measure to encourage bicycle use, new development of all types shall provide secured bicycle parking. Off-street parking remains a real and perceived issue for downtown merchants. Although there are several thousand spaces in Downtown's Mixed -Use area, many are occupied by employees, many are restricted by permit only, and the larger lots are not close by to 22 Ordinance No. 6463 Exhibit E, Page 10 of 11 DOWNTOWN REFINEMENT PLAN PUBLIC SPACES ELEMENT PUBLIC SPACES ELEMENT This element identifies areas suitable for development as public space and how such action compliments other efforts benefiting Downtown. The principal objectives in establishing public space throughout Downtown are to provide architectural contrast, enhance the pedestrian experience, and provide opportunities for outdoor recreation and relaxation. An additional benefit occurs through use of these spaces for community events such as craft fairs, farmer's markets and specialized exhibits. Public spaces do not need to be large or expensive to serve the purpose. The pocket park on Main Street, the Mill Race overlook at the Depot, and the fountain in front of City Hall are examples of effective use of relatively small areas. Other areas that should be considered for use as public space include the Mill Race adjoining the Springfield Station, portions of the Booth- Kelly site including the planned Booth-Kelly Natural Area Park, the public parking lot adjoining the south side of City Hall, and some portion of the Justice Center development area. The continued and expanded use of public buildings for community events is another way of bringing people to the Downtown. Springfield City Hall, Willamalane Adult Activity Center, the Springfield Museum, and the Depot are examples of buildings that provide meeting space for the public and which are strategically located throughout the Downtown. Encouraging outside groups to reserve these facilities introduce visitors to the various shops, restaurants and businesses Downtown that might otherwise seldom be considered for patronage by people from out of the area. POLICIES (Ordinance 6148, adopted in 2005, amended this section to add policies 1 through 4. Based on the staff report and text amendments provided with the ordinance, it was unclear whether the policies currently listed as 5 through 7 should remain or be removed.) 1) The City shall encourage the development and use of sites throughout Downtown for displays, exhibits, festivals, and other events of public interest. 2) The City and Willamalane shall continue to explore the creation and development of public space improvements in the Downtown including a Downtown overlook and improved pedestrian access to Island Park, the Mill Race, and the historic Briggs Ferry Landing. 3) The City shall endeavor to maintain funding for maintenance programs on Downtown streets, sidewalks, and City-owned public spaces. 4) The City, in cooperation with downtown businesses, should identify funding for, design, and construct a New Main Street plaza at the location of the parking lot on the south side of City Hall. The plaza would serve as the primary civic gathering public space in the core of the downtown. The design would explore whether it should be a dual use as both parking and plaza, or be converted to all plaza. The long-term vision for this space would include reconstruction of the south side of City Hall to complement the plaza. temp erary nr permaReRt park and epee crane l ice 6) The Gity she �I�uFsue � rte{��nunvc-vim -aIkc the MAwAten lmplementatmGi r a. en fnmrne��eRt of Qty GGde (SeG. 2 7 ^� T nequires Ian rters to ease , -� sidelvalks, adjaGent to their property. assessment doatrin4 wmthin the F)A� RtgWR 33 Ordinance No. 6463 Exhibit E, Page 11 of 11 DOWNTOWN REFINEMENT PLANL PUBLIC SPACES ELEMENT Ir p ement Ue. a.Undue s Ir1peq of the Carmep MAet b. ReexaRARe-;e;Teies dea',Ag YAth s#e&ven�S, G. regulate IniteriRg and transient traffic in the P ewptewn area 34 Ordinance No. 6463 Exhibit F, Page 1 of 15 Exhibit F Springfield Development Code Amendments Amendments to the following Springfield Development Code (SDC) Sections are shown in track changes on the following pages: 2.1.110 Purpose. The regulations contained in this code are intended to ensure that development is: (A) Sited on property zoned in accordance with the applicable Springfield Comprehensive Plan Map nno���and/or applicable Refinement Plan diagram, Plan District map, and Conceptual Development Plan. 3.2.105 Base Land Use Districts Established. The Base Land Use Districts implement policies of the Metro Plan, Springfield Comprehensive 2030 Refinement Plan and any applicable refinement plan or plan district; regulate the use of land, structures, and buildings; and protect the public health, safety, and welfare. The following Base Land Use Districts are established consistent with applicable Springfield Comprehensive 2020 Refinement Plan designations: Section Base Land Use District Name Springfield Comprehensive A4et-re Plan Designation Residential Land Use Districts R-1 Low Density Residential R-2 Medium Density Residential R-3 High Density Residential Commercial Land Use Districts NC Neighborhood Commercial Neighborhood Commercial Facilities(,) CC Community Commercial Community Commercial Centers MRC Major Retail Commercial Major Retail Center GO General Office Community Commercial Center,-&Major Retail Commercial Center, General Office Industrial Land Use Districts Cl Campus Industrial Campus Industrial LMI Light-Medium Industrial Light Medium Industrial HI Heavy Industrial Heavy Industrial SHI Special Heavy Industrial Special Heavy Industrial MS Medical Services District (2) 1 Ordinance No. 6463 Exhibit F, Page 2 of 15 3.2.60C Mixed Use Districts(3) MUC Mixed Use Commercial MUE Mixed Use Employment Mixed Use Plan Designations(4) MUR Mixed Use Residential 3.2.700 PLO Public Land and Open Space Public Land and Open Spacee 3.2.800 QMO Quarry and Mining Operations Sand and Gravel 3.2.900 Agriculture—Urban Holding Area (AG) Urban Holding Area-Employment (UHA-E), Natural Resource (NB) (1) Low, Medium, and High Density Residential designations. (2) Medium and; High Density Residential, Community Commercial Center1; Major Retail Center, and various Mixed Use designations identified in refinement plans. (3) See also SDC 3.4.245 for additional Mixed-Use Districts specific to Glenwood. See SDC 3.4.300 for Booth-Kelly Mixed Use Plan District specific to Downtown. (4) The multiple variations of Mixed Use plan designation names are not captured in this table but are shown on the Springfield Comprehensive Plan Map and described in the Springfield Comprehensive Plan Land Use Element and applicable refinement plans. Variations of Mixed Use plan designations may align with other land use districts as noted in applicable refinement plans. 3.2.605 Establishment of Mixed-Use Zeno Land Use Districts. The following mixed-use bland use districts are established to implement areas designated Mixed-Use by the Springfield Comprehensive Plan Mapnno+gin on adopted refinement plans, specific area plans and specific development plan diagrams and along transportation corridors designated for commercial development: 3.2.705 Establishment of the Public Land and Open Space (PLO) District. (B) The PLO District shall must also be permitted on properties designated other than Public Land and Open Space Semi-Publm^ as specified in the Springfield Comprehensive Metre-Plan, a refinement plan, or plan district. 3.2.925 Standards for Interim Development. (E) (1) Exemption: Land divisions that create lots/parcels for the purpose of establishing a Natural Resource or Public Land and Open Space PubliG/SeR - 2 Ordinance No. 6463 Exhibit F, Page 3 of 15 -ubAn Parks and QPeR SpaGe-designation within the floodway, wetland or riparian resource portions of the site may create lots/parcels less than 20 acres within the Natural Resource or Public Land and Open Space PubliGiSeMi_D„h6n Darks and Qpe1 fie-designation portion of the parent lot/parcel. 3.2.930 Planning Requirements Applicable to Zoning Map Amendments. In addition to the standards, procedures and review criteria in SDC 5.22.100 applicable to Zoning Map Amendments, Table 1 provides an overview of the planning procedures required prior to rezoning land from Agriculture—Urban Holding Area (AG) to urban employment zeRin land use districts desigRatieRs (e.g., Employment, Employment Mixed Use, Campus Industrial, or Industrial). Table 1 shows both City and Owner- initiated planning processes. Table 1. Pre-Development Approval Process Steps—Urban Holding Areas City-initiated Planning Process Owner-Initiated Planning Process 1 . City prepares Plan Amendment to 1. Applicant submits request to City to address all applicable Statewide Planning initiate amendments to the Transportation Goals (e.g., amended or new refinement System Plan and Public Facilities and plan or district plan), Metro Plan and Services Plan, and other city actions that Springfield Comprehensive Plan policies may be required prior to plan amendment and Springfield Development Code approval. standards. 2. City and Lane County approve 2. Applicant prepares and submits Plan Comprehensive Plan Amendment to Amendment application to address all amend nao+r„ Dian a4d Springfield applicable Statewide Planning Goals, Comprehensive Plan Map. UHA-E Metro Plan and Springfield designation is replaced with employment Comprehensive Plan policies, and plan designations (e.g., Employment, Springfield Development Code standards. Employment Mixed Use, Campus Applicant proposes employment plan Industrial, or Industrial). AG land use designations (e.g., Employment, district zening remains in effect until Employment Mixed Use, Campus Master Plan and new land use districts Industrial, or Industrial). are approved. 3. City prepares and approves Zoning 3. City and Lane County approve Plan Map Amendment to apply new land use Amendment to amend MetFe Plan and districts (e.g., Industrial, Campus Springfield Comprehensive Plan Map. Industrial, Employment Mixed Use, or UHA-E designation is replaced with Employment). Land is planned and zoned employment plan designations (e.g., and eligible for annexation. Employment, Employment Mixed Use, Campus Industrial, or Industrial). AG land use district remains in effect until Master Plan and new land use districts mare approved. 4. Applicant prepares and submits 4. Applicant prepares and submits Preliminary Master Plan and annexation Preliminary Master Plan, proposed land use district and demonstration of 3 Ordinance No. 6463 Exhibit F, Page 4 of 15 applications with demonstration of key key urban services provision. Applicant urban service provision. submits annexation application. 5. City approves Master Plan and 5. City approves Master Plan and Zoning annexation. Map Amendment and annexation. 6. Applicant submits Site Plan, 6. Applicant submits Site Plan, Subdivision, and other applicable Subdivision etc., development development applications. applications. 3.3.1005 Purpose, Applicability and Review. (A) Purpose. The Nodal Development (ND) Overlay District is established to support mixed-use pedestrian-friendly development and work in conjunction with underlying land use districts to implement transportation-related land use policies found in the Springfield Transportation System Plan, and On the Metro Plan, aadthe Springfield Comprehensive Plan, and Neighborhood Refinement Plans. The ND Overlay Distri Gt TFaR6P0rtatlnrl DlanniR9 R,,lo (B) Applicability. The ND Overlay District applies to all property where ND Overlay is indicated on the Springfield Comprehensive Plan Map, unless the property is an historic property as specified in SDC 3.3.900. The ND Overlay District is intended to implement the Nodal Development Area Overlay on the Springfield Comprehensive Plan Map. The ND Overlay District requirements described in this section apply to the following: 3.2.805 Establishment of the Quarry and Mine Operations (QMO) District. (B) The QMO District is applied to areas with a Sand and Gravel designation on the �Aotrn DlaR Diagram Springfield Comprehensive Plan Map. 3.3.810 Applicability. (A) The provisions of the OF-10 Overlay District apply to all land between Springfield's city limits and the Urban Growth Boundary. (B) EXCEPTIONS: (1) The provisions of the OF-10 Overlay District shall do not apply to land designated Public Land and Open Space, Urban Holding Area - Employment, or Natural Resource Geyerr,ment and Ed UGatmen on the Springfield Comprehensive Plan Map 4et o oi�� _Vag an4 4 Ordinance No. 6463 Exhibit F, Page 5 of 15 3.2.815 Review. (A) To establish a new quarry or mining operation within the Springfield Urban Growth Boundary, the following are required: (1) A nn�Comprehensive Plan amendment (Type AL4 review). 3.4.245 ' aid-UsePlan Designations, ' Land Use District Descriptions and Applicable Overlay Districts. (A) Applicable Land Use Designations. (1) The Springfield Comprehensive MetFe-Plan designations are as follows: (a) The Multimodal nno+r„ lRi.n'6 Mixed=Use designation applies to all land within the Glenwood Riverfront. (b) The Springfield Comprehensive Plan's Meer„ Ri.an's Nodal Development Area Overlay designation applies to all land within the Franklin Riverfront and the land along McVay Highway, north of the Union Pacific Railroad trestle. The Nodal Development Area Overlay designation supports a mixed-use, pedestrian-friendly land use pattern that seeks to increase concentrations of population and employment in well-defined areas with good transit service, a mix of diverse and compatible land uses, and public and private improvements designed to be oriented to pedestrians and transit. (c) The Springfield Comprehensive Plan's Public Land and Open Space MetFe Plan's P blir and Semi o„ designation includes existing publicly owned metropolitan and regional scale parks, and publicly and privately owned golf courses and cemeteries in recognition of their role as visual open space, as well as some other areas needed for public open space at a non-local level. This designation may apply to public open spaces envisioned in the Glenwood Refinement Plan, and/or any necessary major public facility, at such time as they are placed under public jurisdiction. Until that time, these public open space areas and future major public facilities, (e.g., a fire station) will retain the applicable mixed-use designation and zoning described in SDC (A)(2) and (B). When appropriate, the City or an affected public agency may initiate a Springfield Comprehensive Plan Map e#e-P4a,Tand Zoning Map amendment for the subject property to be designated Publin andd comi_P blin and zoned Public Land and Open Space. 5 Ordinance No. 6463 Exhibit F, Page 6 of 15 4.7.210 Residential Uses in Commercial Districts. (A) In areas designated mixed use oin the Springfield Comprehensive Metre Plan Map or a Refinement Plan diagram, Plan District map, or Conceptual Development Plan, multiple unit housing developments shall must meet the standards as specified in the applicable regulation. MDR R-2 and HDR R-3 District standards contained in this code ,h;;" must be followed where the Springfield Comprehensive Plan Map, Refinement Plan diagram, Plan District map, or Conceptual Development Plan does not specify development standards, or in areas where no applicable regulation has been prepared. 4.7.385 Multiple Unit Housing (Discretionary Option). (E) Transition and Compatibility Between Multiple Unit Housing and R-1 District Development. The Approval Authority must find that the development is located and designed in a manner compatible with surrounding development by creating reasonable transitions between multiple unit housing and sites and adjacent R-1 districts. This criterion may be met by complying with either subsection (E)(1) or (2) below or by meeting SDC 4.t.390. (1) Type 2 Process. Multi-unit developments adjacent to properties dosed in the R-1 district must comply with the transition area and compatibility standards listed below, unless it can be demonstrated that adjacent R-1 district property is committed to a non-residential use (e.g., church) that is unlikely to change. In evaluating the status of an adjacent property, the fie-Springfield Comprehensive Plan designation must take precedent over the current zone or use. 5.1.630 Final Decision. (E) For nn�Comprehensive Plan amendments that require adoption by the City, Eugene and/or Lane County, the City Council decision is final only upon concurrence of the Lane County Commissioners and the City of Eugene City Council, as appropriate. 6 Ordinance No. 6463 Exhibit F, Page 7 of 15 5.12.100 — Land Divisions—Partitions and Subdivisions 5.12.105 Purpose and Applicability. (A) Purpose. The purpose of the Partition and Subdivision process is to: Facilitate and enhance the value of development; Maintain the integrity of the City's watercourses by promoting bank stability, assisting in flood protection and flow control, protecting riparian functions, minimizing erosion, and preserving water quality and significant fish and wildlife areas; Minimize adverse effects on surrounding property owners and the general public through specific approval conditions; Ensure the provision of public facilities and services; Provide for connectivity between different uses; Utilize alternative transportation modes including walking, bicycling and mass transit facilities; Implement the applicable Comprehensive PlansMetre Plan, applicable refinement plans, specific area plans and specific development plans; Minimize adverse effects on surrounding property owners and the general public through specific approval conditions; and Otherwise protect the public health and safety. 5.12.125 Tentative Plan Criteria. The Director shall must approve or approve with conditions a Tentative Plan application upon determining that all applicable criteria have been satisfied. If conditions cannot be attached to satisfy the approval criteria, the Director sha4must deny the application. In the case of Partitions that involve the donation of land to a public agency, the Director may waive any approval criteria upon determining the particular criterion can be addressed as part of a future development application. (A) The request conforms to the provisions of this code pertaining to lot/parcel size and dimensions. (B) The zoning is consistent with the fie-Springfield Comprehensive Plan diagram Map and/or applicable Refinement Plan diagram, Plan District map, and Conceptual Development Plan. 5.12.120 Tentative Plan Submittal Requirements. A Tentative Plan application sha4must contain the elements necessary to demonstrate that the provisions of this code are being fulfilled. EXCEPTION: In the case of Partition applications with the sole intent to donate land to a public agency, the Director, during the Application Completeness Check Meeting, may waive any submittal requirements that can be addressed as part of a future development application. (A) General Requirements. Ordinance No. 6463 Exhibit F, Page 8 of 15 (7) Applicable bland use districts and the fie-Springfield Comprehensive Plan designation of the proposed land division and of properties within 100 feet of the boundary of the subject property. 5.13.100 — Master Plans 5.13.116 Preliminary Master Plan—Application Concurrency. (A) If the applicant requires or proposes to change the Springfield Comprehensive Plan Map nno+r^ o';;n diagparn and/or applicable Comprehensive Plan text, the applicant shall must apply for and obtain approval of a Springfield Comprehensive Plan Map nnotrA_ Ri.n diagram and/or Comprehensive Plan text amendment prior to the submittal of the Preliminary Master Plan application. The Map 4tK ��m and/or text amendment may also require amendment of an applicable refinement plan diagram or Plan District Map. 5.13.120 Preliminary Master Plan—Submittal Requirements. The Preliminary and Final Master Plan applications shall be prepared by a professional design team. The applicant shall select a project coordinator. All related maps, excluding vicinity and detail maps, &ha4must be at the same scale. A Preliminary Master Plan sha4must contain all of the elements necessary to demonstrate compliance with the applicable provisions of this code and & a4must include, but not be limited to: (A) General Submittal Requirements. The applicant shall submit a Preliminary Master Plan that includes all applicable elements described below and a narrative generally describing the purpose and operational characteristics of the proposed development. The narrative &ha4must include: (1) The existing Springfield Comprehensive R4,Qtrp Plan designation and land use district. Where the proposed Master Plan site is within an overlay district, Plan District or Refinement Plan, the applicable additional standards s4a4must also be addressed; 5.13.125 Preliminary Master Plan—Criteria. A Preliminary Master Plan s4a44must be approved, or approved with conditions, if the Approval Authority finds that the proposal conforms with all of the applicable approval criteria. (A) Plan/Zone Consistency. The existing or proposed land use district '^ning shall must be consistent with the Springfield Comprehensive Plan Map nno# Pion d4gram and/or applicable text. In addition, the Preliminary Master Plan & a44must be in s Ordinance No. 6463 Exhibit F, Page 9 of 15 compliance with applicable City Refinement Plan, Conceptual Development Plan or Plan District standards, policies and/or diagram and maps. (B) ' Land Use District Standards. The Preliminary Master Plan & a-4must be in compliance with applicable standards of the specific land use district and/or overlay district. (C) Transportation System Capacity. With the addition of traffic from the proposed development, there is either sufficient capacity in the City's existing transportation system to accommodate the development proposed in all future phases or there will be adequate capacity by the time each phase of development is completed. Adopted State and/or local mobility standards, as applicable, &1 at4must be used to determine transportation system capacity. The Preliminary Master Plan s#a4must also comply with any conditions of approval from a Springfield Comprehensive Plan Map nno+ diagram and/or applicable text amendment regarding transportation and all applicable transportation standards specified in SDC Chapter 4. 5.14.100 — Comprehensivenn� Plan Amendments 5.14.105 Purpose. The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan that establishes the broad framework upon which Springfield, Eugene and Lane County make coordinated land use decisions. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield UGB. Together the Metro Plan and Springfield Comprehensive Plan serve as the applicable comprehensive plans for Springfield and will be referenced as "Comprehensive Plan" throughout this section. While these Plans are nno+,-„ 121;;n is Springfield's acknowledged land use policy documents, +theme rr may require updates or amendments in response to changes in the law or circumstances of importance to the community. Additionally, these Watre-Plans may be augmented and implemented by more detailed plans and regulatory measures. 5.14.110 Review. (A) A Development ems-Initiation Meeting is encouraged for citizen initiated amendment applications. (B) fie-Comprehensive Plan amendments are reviewed under Type 4 procedures as specified in SDC 5.1 .140. 9 Ordinance No. 6463 Exhibit F, Page 10 of 15 (C) A special review, and if appropriate, Comprehensive MQtre-Plan amendment, sOa4must be initiated if changes in the Metro Plan basic assumptions occur. An example would be a change in public demand for certain housing types that in turn may affect the overall inventory of residential land. 5.14.115 Comprehensivehfiptro Plan Amendment Classifications. A proposed Comprehensive Plan amendment to the �Aotrn Dl;;n chill h is a Type 4 Procedure according to the Development Code and is further classified as a Type 1, Type 2, or Type 3 amendment according to the Metro Plan depending upon the number of governing bodies (Springfield, Eugene, and Lane County) required to approve the decision. (A) A Type 1 amendment requires approval by Springfield only: (1) Type 1 Springfield Comprehensive Plan Map 94amendments include amendments to the Map for land inside Springfield's city limits. (2) Type 1 text amendments include: (a) Amendments that are non-site specific and apply only to land inside Springfield's city limits; (b) Site specific amendments that apply only to land inside Springfield's city limits; (c) Amendments to a regional transportation system plan or a regional and public facilities plan when only Springfield's participation is required by the amendment provisions of those plans; and (d) The creation of new Springfield Comprehensive MetFe-Plan designations and the amendment of existing Springfield Comprehensive Metre Plan designation descriptions that apply only within Springfield's city limits. (B) A Type 2 amendment requires approval by Springfield and Lane County only: (1) Type 2 Springfield Comprehensive Plan Map amendments include: (a) Amendments to the Map nno+rn ol��for the area between Springfield's city limits and the Plan Boundary; and (b) An Urban Growth Boundary (UGB) or Metro Plan Boundary amendment east of 1-5 that is not described as a Type 3 amendment. (2) Type 2 Text amendments include: 10 Ordinance No. 6463 Exhibit F, Page 11 of 15 (a) Amendments that are non-site specific and apply only to Lane County and Springfield; (b) Amendments that have a site specific application between Springfield's city limits and the Plan Boundary; and (c) Amendments to a jointly adopted regional transportation system plan or a regional public facilities plan when participation by Springfield and Lane County is required by the amendment provisions of those plans. (C) A Type 3 amendment requires approval by Springfield, Eugene, and Lane County. (1) Type 3 Springfield Comprehensive Plan Map amendments include: (a) Amendments of the Common UGB along 1-5; and (b) A UGB or Metro Plan Boundary change that crosses 1-5. (2) Type 3 Text amendments include: (a) Amendments that change a Fundamental Principle as specified in Metro Plan Chapter 11 A; (b) Non-site specific amendments that impact Springfield, Eugene, and Lane County; and (c) Amendments to a jointly adopted regional transportation system plan or a regional public facilities plan, when the participation of Springfield, Eugene and Lane County is required by the amendment provisions of those plans. 5.14.120 Relationship to Refinement Plans, Special Area Studies, or Functional Plan Amendments. (A) In addition to a Metro Plan update, refinement studies may be undertaken for individual geographical areas and special purpose or functional elements, as determined appropriate by Springfield, Eugene, or Lane County. (B) All refinement and functional plans &hatlmust be consistent with the Metro Plan. Should inconsistencies occur, the Metro Plan is the prevailing policy document. (C) When a fie-Comprehensive Plan amendment also requires an amendment of a refinement plan or functional plan map or diagram and/or text for consistency, the Metro Plan, refinement plan and/or functional plan amendments smust be processed concurrently. 11 Ordinance No. 6463 Exhibit F, Page 12 of 15 (D) When a Comprehensive MQtrp-Plan amendment is enacted that requires an amendment to a refinement plan or functional plan map or diagram for consistency, the Springfield Comprehensive Plan Map e#e Dlan ni� amendment automatically amends the diagram or map if no amendment to the refinement plan or functional plan text is involved. (E) An amendment of the Springfield Gemprehensiye Dlan shall be PFeGesseld ac a T�r„�--crrrrcc r�crrrrcrrc-vrcrr��rrcra--vvrrrP-rcrr ccr-a�--�� Metro Dl;;n amondmont and nnmply with the apppe al nritoria cnonifiod in 5.14.125 Initiation. nn�Comprehensive Plan amendments shatmay be initiated as follows: (A) A Type 1 amendment may be initiated by Springfield at any time. A property owner may initiate an amendment for property they own at any time. Owner initiated amendments are subject to the limitations for such amendments set out in this code (see also subsection (E)). (B) A Type 2 amendment may be initiated by Springfield or Lane County at any time. A property owner may initiate an amendment for property they own at any time. Owner initiated amendments are subject to the limitations for such amendments set out in this code and the Lane Code (see also subsection (E)). EXCEPTION: Consideration of a property owner initiated fie-Comprehensive Plan amendment (Type 1 and 2) will be postponed by the Director if the proposed amendment is also part of an existing planned refinement plan or special area study adoption or amendment process, or one that is scheduled to commence within 3 months of the date of application submittal. The requested Comprehensive MetFe-Plan amendment will be considered in the legislative proceedings of the refinement plan or special area study. If the refinement plan or special area study process has not begun within the 3-month period, the Comprehensive Mptrt4-Plan amendment application process s#afl-will begin immediately following the 3-month period. The Director may exempt particular plan amendment applications from postponement under this subsection and require more immediate review if there is a finding that either there is a public need for earlier consideration or that review of the proposed amendment as part of a general refinement plan or special area study adoption or amendment process will interfere with timely completion of that process. (C) A Type 3 amendment may be initiated at any time by Springfield, Eugene, or Lane County. (D) Only Springfield, Eugene or Lane County may initiate a refinement plan, a functional plan, a special area plan, Periodic Review, or a Metro Plan update. 12 Ordinance No. 6463 Exhibit F, Page 13 of 15 (E) nn�Comprehensive Plan updates & a4must be initiated no less frequently than during the state required Periodic Review of the fie-Comprehensive Plan, although Springfield, Eugene, and Lane County may initiate an update of the Metro Plan at any time. 5.14.140 Appeals. Adopted or denied nn�Comprehensive Plan amendments may be appealed to Oregon Land Use Board (LUBA) or the Department of Land Conservation and Development (DLCD) according to State law. 5.14.145 Limitation on Refiling. The City swill not consider a property owner-initiated Comprehensive Metre-Plan amendment application if a substantially similar or identical plan amendment has been denied by the City within the year prior to the application date unless the facts forming the basis for the denial have changed so as to allow approval. The Director shall will determine whether the proposed amendment is substantially similar or identical after providing the applicant with an opportunity to comment on the matter in writing. 5.22.110 Review. Official Zoning Map amendments may be initiated by the Director, the Planning Commission, the Hearings Official, the City Council or a citizen. Zoning Map amendments s#a will be reviewed as follows: (A) Legislative Zoning Map amendments involve broad public policy decisions that apply to other than an individual property owner, generally affecting a large area and/or require a concurrent fie-Springfield Comprehensive Plan Map amendment as specified in SDC 5.14.100. Legislative Zoning Map amendments are reviewed using Type 4 procedure. (1) Springfield Comprehensive nn,..etre Plan n" Map Amendment Determination. An amendment to the Springfield Comprehensive Mptrc4-Plan Map & eiL required if the proposed Zoning Map amendment is not consistent with the Springfield Comprehensive Mptrp-Plan Map. Both amendments may be processed concurrently. (2) Transportation Planning Rule Compliance. Where applicable, legislative Zoning Map amendments swill be reviewed to determine whether the application significantly affects a transportation facility, as specified in Oregon 13 Ordinance No. 6463 Exhibit F, Page 14 of 15 Administrative Rule (OAR) 660-012-0060. In this case a Traffic Impact Study must be submitted as specified in SDC 4.2.101(A)(4). (B) Quasi-judicial Zoning Map amendments involve the application of existing policy to a specific factual setting, generally affecting a single or limited group of properties and may or may not include a Springfield Comprehensive MetFe-Plan d" Map amendment. Quasi-judicial Zoning Map amendments are reviewed using Type 3 procedure, unless a Springfield Comprehensive MQtrp-Plan Map amendment is required. In this case, the Quasi-judicial Zoning Map amendment will be raised to a Type 4 review. 5.22.115 Criteria. (A) Quasi-Judicial Zoning Map Amendments. The Planning Commission or Hearings Officer may approve, approve with conditions, or deny a quasi-judicial Zoning Map amendment based upon approval criteria in subsections (C)(1) through (3), below. The Planning Commission or Hearings Official shall make the final local decision on all quasi-judicial Zoning Map amendments that do not include a Springfield Comprehensive Plan Map nno+rn ol;;r, diagram amendment. (B) Legislative Zoning Map Amendments and Quasi-Judicial Zoning Map Amendments Raised to a Type 4 Review. The Planning Commission or Hearings Official may make a recommendation to the City Council to approve, approve with conditions or deny Zoning Map amendments and Springfield Comprehensive Plan Map NAotr^ RIaR diagram amendments based upon approval criteria in subsection (C)(1) through (4), below. The City Council shall make the final local decision on all Zoning Map amendments involving a Springfield Comprehensive Plan Mapnnotr„ ol �^rim amendment. (C) Zoning Map Amendment Criteria of Approval. (1) Consistency with applicable Metro Plan policies, Springfield Comprehensive Plan policies, and the Springfield Comprehensive Plan Mgt PaR diagFa4:4-1 (2) Consistency with applicable Refinement Plans, Plan District maps, Conceptual Development Plans and functional plans; (3) The property is presently provided with adequate public facilities, services and transportation networks to support the use, or these facilities, services and transportation networks are planned to be provided concurrently with the development of the property; 14 Ordinance No. 6463 Exhibit F, Page 15 of 15 (4) Meet the approval criteria specified in SDC 5.14.100 when involving a Springfield Comprehensive Plan Map n _-���amendment; and (5) Compliance with Oregon Administrative Rule (OAR) 660-012-0060, where applicable. 6.1.110 Meaning of Specific Words and Terms. Comprehensive Plan. A generalized, coordinated land use map and policy statement of the governing body of a local government that interrelates all functional and natural systems and activities relating to the use of lands, including but not limited to sewer and water systems, transportation systems, educational facilities, recreational facilities, and natural resources and air and water quality management programs, as further defined by ORS 197.015(5). The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the regional long-range comprehensive plan public policy document that establishes the broad framework upon which Springfield, Eugene and Lane County make coordinated land use decisions. The Springfield Comprehensive Plan is the local long-range comprehensive plan that establishes city-specific goals, policies, and implementations strategies to inform land use decisions within the Springfield UGB. Together the Metro Plan and Springfield Comprehensive Plan serve as the applicable comprehensive plans for Springfield. Future Development Plan. A line drawing (required for some land division proposals, or building permits in the City's urbanizable area) that includes the following information: the location of future right-of-way dedications based on the Springfield Transportation System Plan (including the Conceptual Street Map); block length and lot/parcel size standards of the SDC; a re-division plan at a minimum urban density established in this code based on the existing Springfield Comprehensive R4e#rs-Plan designation of the property for any lot/parcel that is large enough to further divide; and the location of hillsides, riparian areas, drainage ways, jurisdictional wetlands and wooded areas showing how future development will address preservation, protection or removal. Refinement Plan Diagram. A map contained in a Refinement Plan showing plan designations that are described in the Refinement Plans and Springfield Comprehensive Plan Land Use Element and also shown nnnro &peG4i- +hen � on the Springfield Comprehensive Plan Map 4eke oian niwj4;ati, Urban Growth Boundary. A site-specific line that separates urban or urbanizable land from rural land and which appears on the Springfield Comprehensive Plan Map44etr-o 4an (l i lgFa r» 15 Ordinance No. 6463 Exhibit G Page 1 of 16 STAFF REPORT & FINDINGS TYPE 4- LEGISLATIVE AMENDMENTS Project Name: Springfield Comprehensive Plan Map Clarification Project Affected Area: Applies to all land within the Springfield Urban Growth Boundary, which includes land within city limits and urbanizable land outside city limits City of Springfield Case Number: 811-23-000129-TYP4 Lane County Case Number: 509-PA23-05396 Joint City of Springfield and Lane County Planning Commissions Hearing: July 18, 2023 Lane County Board V Reading: September 26, 2023 Joint City Council and Board of County Commissioners Hearing: October 16, 2023 City Council 2nd Reading: November 20, 2023 I. NATURE OF THE AMENDMENTS The City of Springfield and Lane County seek approval of amendments to adopt a Springfield Comprehensive Plan Map and Land Use Element that replaces the text in Chapter II-G of the Eugene-Springfield Metropolitan Area General Plan (Metro Plan) and replaces the plan designations shown on the Metro Plan Diagram for land within the Springfield Urban Growth Boundary(UGB).The amendments apply to all land within the Springfield UGB, which includes land within city limits and urbanizable land outside city limits.This proposal includes amendments to: • The Springfield Comprehensive Plan to adopt a Springfield Comprehensive Plan Map and a Land Use Element and to amend additional text for consistency with this action, as shown in Exhibit A—Draft Springfield Comprehensive Plan Amendments, which includes: ■ Exhibit A-1 Springfield Comprehensive Plan Map (The following refinement plan diagrams are amended as depicted in Exhibit A-1: Downtown, East Kelly Butte, East Main, Gateway, Glenwood, Mid-Springfield, and Q Street.) ■ Exhibit A-2 Land Use Element of Springfield Comprehensive Plan ■ Exhibit A-3 Additional text amendments to Springfield Comprehensive Plan • The Metro Plan to reflect that the Springfield Comprehensive Plan Map and Land Use Element will replace the text in Metro Plan Diagram Chapter II-G and replaces the plan designations shown on the Metro Plan Diagram for lands within the Springfield UGB, as shown in Exhibit B—Draft Metro Plan Amendments. • Springfield's Gateway and Glenwood Refinement Plans text for consistency with adopting a Springfield Comprehensive Plan Map and Land Use Element, as shown in Exhibit C— Draft Neighborhood Refinement Plan Amendments for Co-adoption. Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 1 of 16 Ordinance No. 6463 Exhibit G Page 2 of 16 • Springfield's East Main, Mid-Springfield, and Q Street Refinement Plans text for consistency with adopting a Springfield Comprehensive Plan Map and Land Use Element, as shown in Exhibit D—Draft Neighborhood Refinement Plan Amendments for Springfield-only adoption. • Springfield's Downtown Refinement Plan for consistency with adopting a Springfield Comprehensive Plan Map and Land Use Element and to clarify amendments adopted by Ordinance 6148 (2005), as shown in Exhibit E—Draft Downtown Refinement Plan Amendments (Springfield-only adoption). • The Springfield Development Code for consistency with adopting a Springfield Comprehensive Plan Map and Land Use Element, as shown in Exhibit F—Springfield Development Code Amendments. • Supporting information summarizing the process and approach to create the Springfield Comprehensive Plan Map is provided in Attachment 7—Methodology for Springfield Comprehensive Plan Map of the October 16, 2023 Springfield City Council and Lane County Board of Commissioners meeting materials. II. BACKGROUND For decades, Eugene and Springfield shared a comprehensive plan:the Eugene-Springfield Metropolitan Area General Plan ("Metro Plan").The Metro Plan was created as the sole, long- range plan (a public policy and vision document) for metropolitan Lane County, including Springfield and Eugene. Both cities recently established separate urban growth boundaries based on a determination of land supplies needed to meet anticipated growth. As a result, comprehensive planning is evolving toward city-specific plans. As part of continuing to develop the Springfield Comprehensive Plan, a key step is to create a map that shows existing plan designations for each property in Springfield by interpreting and clarifying the Metro Plan Diagram, which was adopted most recently as an 11"x 17" paper map in 2004.The Metro Plan Diagram is a "broad brush," graphic depiction of projected land uses and major transportation corridors but does not meet today's needs for showing which plan designations apply to each property within the region. Establishing a property-specific Springfield Comprehensive Plan Map will add greater certainty for understanding the planned land uses.The map will provide timely, accurate information, ultimately increasing confidence in the land use process by providing a solid visual understanding of existing plans and policies. Given the scale of the Metro Plan Diagram, it was not always clear how to precisely draw the line between differing plan designations (shown as different colors)to develop Springfield's Comprehensive Plan Map. Staff began work to clarify boundaries of plan designations by researching land use records for all properties that appeared to be near another designation on the Metro Plan Diagram. Staff also verified that the proposed version of Springfield's Comprehensive Plan Map reflects neighborhood refinement plans and any changes to the Metro Plan Diagram adopted since 2004. Staff approached this project with a mix of policy and technical research and informed conversations to seek input on mapping approaches. Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 2 of 16 Ordinance No. 6463 Exhibit G Page 3 of 16 The project's Community Engagement Plan includes strategies for working with stakeholders and the general public, including outreach to the broader community and to the owners of property within the areas that require interpretation to seek their knowledge and confirm the understanding of plan designations for their properties. Interviews with city jurisdictions in Oregon, discussions with the Technical Resource Group and Project Advisory Committee, and guidance from Springfield Planning Commission and City Council influenced how the proposed Springfield Comprehensive Plan Map looks and functions in the context of the proposed Land Use Element of Springfield's Comprehensive Plan. Attachment 7—Methodology for Springfield Comprehensive Plan Map provides additional detail about the approach to creating a property- specific Comprehensive Plan Map for Springfield and associated outreach. The Springfield Comprehensive Plan Map is accompanied by a Land Use Element that transfers the relevant plan designation descriptions from the Metro Plan with some revisions and updates to reflect what applies in Springfield. The Land Use Element also includes a goal, policies, and implementation strategies related to the Springfield Comprehensive Plan Map. To support establishing a Springfield Comprehensive Plan Map and Land Use Element, related amendments are included as described in Section I — Nature of the Amendments. III. PROCEDURAL REQUIREMENTS The amendments are a Type 4 legislative decision because the amendments apply to all land within the Springfield UGB, which includes land within city limits and urbanizable land outside city limits. Under Springfield Development Code (SDC) 5.14.110 and Lane Code 12.300, amendments to the Metro Plan are reviewed under Type 4 procedures as a legislative action. Under SDC 5.14.120(E), amendments to the Springfield Comprehensive Plan are processed as a Metro Plan amendment. Metro Plan amendments are further classified into"types" in Metro Plan Chapter IV, in SDC 5.14.115, and in Lane Code 12.300.010;this is a Type 2 (Type 11 in Metro Plan and Lane Code)amendment. The amendments are consistent with Metro Plan Policy IV.7.b and IV.12.As such, the Type 2 Metro Plan amendments being considered in conjunction with amendments to Springfield's Comprehensive Plan require approval by Springfield and Lane County, as they will apply to all land within the Springfield UGB. Under SDC 5.6.110, amendments to Refinement Plans and the Development Code text are reviewed under a Type 4 procedure as legislative actions. Per SDC 5.1.600 and the urban transition agreement between the City of Springfield and Lane County,the amendments require a review and recommendation by the Springfield Planning Commission, and Lane County Planning Commission at Lane County's discretion, prior to action being taken by the Springfield City Council and Lane County Board of Commissioners. The Director for the City of Springfield initiated the amendments on behalf of the City of Springfield as is allowed under SDC 5.14.125(B) and 5.6.105(B). The Director must send notice to the Department of Land Conservation and Development(DLCD) as specified in OAR 660-18-0020. On June 13, 2023, the City submitted a joint City-County"DLCD Notice of Proposed Amendment" to DLCD in accordance with DLCD submission guidelines via the FTP website. The notice was mailed 35 days in advance of the first evidentiary hearing as required by ORS 197.610(1) and OAR 660-018-0020. Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 3 of 16 Ordinance No. 6463 Exhibit G Page 4 of 16 SDC 5.14.130(A) requires the City to provide notice to other relevant governing bodies. The City of Eugene and Lane County received notice on June 28, 2023. Springfield is the "home city" for this amendment. Lane County is included because the amendments apply to unincorporated land within the Springfield UGB. SDC 5.1.615 and Lane Code Section 14.060 require advertisement of legislative land use decisions in a newspaper of general circulation, providing information about the legislative action and the time, place, and location of the hearing. Notice of the public hearing concerning this matter was published on Thursday, June 22, 2023 in The Chronicle and on Tuesday, June 27, 2023 in The Register Guard, advertising the first evidentiary hearing before thejoint City of Springfield and Lane County Planning Commissions on July 18, 2023. Notice of the joint public hearing before the Springfield City Council and Lane County Board of Commissioners on October 16, 2023 concerning this matter was published on Thursday, September 21, 2023 in The Chronicle and The Register Guard. The content of these notices complied with the requirements in SDC 5.1.615 and Lane Code 14.060 for legislative actions. Notice was also posted in accordance with SDC 5.1.615(B) and sent to Springfield's Development Review Committee in accordance with SDC 5.1.615(E). SDC 5.1.615(C)and (D) do not apply to the amendments. Springfield and Lane County Planning Commissions The Springfield and Lane County Planning Commissions held a joint public hearing on July 18, 2023 and closed the hearing. One person submitted written testimony prior to the joint Planning Commission public hearing. Mr. Farrington, a member of the Project Advisory Committee, encouraged the Planning Commissions to recommend adoption of the amendments and noted this work will help provide greater clarity to property owners. The Planning Commissions made recommendations of approval of the amendments to the Springfield City Council and Lane County Board of Commissioners which are the Approval Authorities for the final local decision. Springfield City Council and Lane County Board of Commissioners The Lane County Board of Commissioners conducted a first reading of Lane County Ordinance PA 1390 and Ordinance 23-07 on September 26, 2023.The Springfield City Council and Lane County Board of Commissioners held a joint public hearing on the amendments on October 16, 2023 and closed the hearing. This was City Council's first reading of Springfield's Ordinance. IV. APPROVAL CRITERIA & FINDINGS The amendments to the Metro Plan and Springfield Comprehensive Plan are subject to the same set of approval criteria, which are referenced below under"Metro Plan & Springfield Comprehensive Plan Amendments." The amendments to Springfield's Downtown, East Main, Gateway, Glenwood, Mid-Springfield, and Q Street Refinement Plans and to the Springfield Development Code are subject to a different set of approval criteria listed on page 14 under "Refinement Plan and Development Code Amendments." Findings showing that the amendments meet the applicable criteria of approval appear in regular text format. Direct citations or summaries of criteria appear in bold italics and precede or are contained within the relevant findings. Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 4 of 16 Ordinance No. 6463 Exhibit G Page 5 of 16 METRO PLAN & SPRINGFIELD COMPREHENSIVE PLAN AMENDMENTS The applicable criteria of approval for amendments to the Metro Plan and the Springfield Comprehensive Plan are at Springfield Development Code 5.14.135 (Metro Plan Amendments), and Chapter 12.100.050 (Method of Adoption and Amendment) and 12.300.030 (Metro Plan Amendment Criteria) of the Lane Code (LC). SDC 5.14.135(Metro Plan Amendments) A Metro Plan amendment may be approved only if the Springfield City Council and other applicable governing body or bodies find that the proposal conforms to the following criteria: (A) The amendment shall be consistent with applicable Statewide Planning Goals;and (B) Plan inconsistency: (1) In those cases where the Metro Plan applies, adoption of the amendment shall not make the Metro Plan internally inconsistent. (2) In cases where Springfield Comprehensive Plan applies, the amendment shall be consistent with the Springfield Comprehensive Plan. LC 12.300.030(Metro Plan Amendment Criteria) The following criteria will be applied by the Board of Commissioners and other applicable governing body or bodies in approving or denying a Metro Plan amendment application: A. The proposed amendment is consistent with the relevant Statewide Planning Goals;and B. The proposed amendment does not make the Metro Plan internally inconsistent. CONSISTENCY WITH APPLICABLE STATEWIDE PLANNING GOALS (SDC 5.14.135(A);LC 12.300.030.A) Statewide Land Use Planning Goal 1: Citizen Involvement Finding 1: The project's Community Engagement Plan was the foundation for engaging the Springfield community and stakeholders in the process of creating the amendments. The Springfield Committee for Citizen Involvement (CCI) approved the project's Community Engagement Plan in March 2022. Community engagement involved a(n): • Mailing to owners of properties that required research needed to clarify plan designations in: o Winter 2022: Letter requesting clarifying information during early stages of property research o Spring 2023: Postcard announcing the Draft Comprehensive Plan Map was ready for review and feedback and the multiple options for how to learn more and provide feedback • Project webpage that provided background information, announcements of upcoming meetings along with meeting materials, content from previous meetings, materials for review (including the draft map),timeline, staff contact information, and ways to connect with project information in Spanish. • Project Advisory Committee: This CCI-appointed Committee (June 7, 2022) resulted from extensive recruitment efforts, such as: o Direct e-mail announcements and invitations to apply Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 5 of 16 Ordinance No. 6463 Exhibit G Page 6 of 16 o Announcements on the project webpage, on the homepage on the City's website, on the City's social media platforms,to the Springfield City Club, in the Springfield Chamber of Commerce Bottom Line newsletter, and in a news release o Informational flyers around City Hall and other locations around town The Committee was made up of Springfield residents, Springfield property and business owners/people with other experience working in Springfield (including private-sector land use planning experience), volunteer experience in the region, and more.The Committee met five times and received e-mail updates between meetings and after its last meeting. Meetings were open to the public to observe and were advertised on the project webpage and City Events calendar. • Technical Resource Group comprised of the Springfield Utility Board, Springfield Public Schools, Willamalane Park and Recreation District, Lane County, Lane Council of Governments, City of Eugene, and the Oregon Department of Land Conservation and Development.The Group met four times and received e-mail updates after meetings. • Online open house, which ran from April 18 through May 11, 2023.The online open house materials included the draft maps (PDF and web-based interactive version), a storyboard presentation to give context for the draft materials, and comment form. • In-person open house, held on May 4, 2023, which provided opportunities for participants to view and comment on the printed and web-based/interactive versions of the draft map, to speak with the project team,gather printed project information, use a supervised activity station for children, and have light refreshments. • Set of Frequently Asked Questions with answers (also translated into Spanish).These questions and answers appeared on the webpage and were available in printed format at the in-person open house. • Work sessions with Planning Commission on November 1, 2022 and April 18, 2023. • Work session Council on November 28, 2022. CONCLUSION:Accordingly,the process used to inform the amendments meets Goal 1. Statewide Land Use Planning Goal 2: Land Use Planning Finding 2: Goal 2, in part, requires Springfield to have and follow a comprehensive land use plan and implementing regulations. The Metro Plan, Springfield Comprehensive Plans, Springfield's neighborhood refinement plans, and Springfield Development Code support this required planning framework. The Oregon Land Conservation and Development Commission previously acknowledged each of these components of Springfield's land use planning program as consistent with Oregon's Statewide Land Use Planning Goals. Finding 3: The actions with this adoption package include amendments to existing, acknowledged plans and associated regulations by way of amendments to the Metro Plan, Springfield Comprehensive Plan, Springfield's neighborhood refinement plans, and the Springfield Development Code. The amendments include replacing the plan designations shown on the Metro Plan Diagram, which is the existing regional comprehensive plan map, with a Springfield Comprehensive Plan Map that shows property-specific plan designations in the Springfield UGB. Finding 4: The amendments to the Metro Plan's text are limited to clarifying that Chapter II- G and the designations shown on the Metro Plan Diagram no longer apply to Springfield, to Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 6 of 16 Ordinance No. 6463 Exhibit G Page 7 of 16 amending additional text throughout the Metro Plan for consistent referencing of applicable planning documents (i.e.,the Springfield Comprehensive Plan where appropriate), explaining the Willamette River Greenway boundary as shown on Springfield's Comprehensive Plan Map, and to explaining how to use the Metro Plan and/or Springfield Comprehensive Plan and their relationship in the context of land use planning in Lane County. Finding 5: The amendments to the Metro Plan Diagram are to no longer show land use designations within Springfield's portion of the Metro Plan Boundary east of Interstate 5. As such, the Metro Plan Diagram amendments do not involve redesignating land. Finding 6: The amendments to the Springfield Comprehensive Plan add a Land Use Element (chapter), reference the Springfield Comprehensive Plan (as opposed to the Metro Plan) where appropriate throughout the Plan, and add a Comprehensive Plan Map to replace the Metro Plan Diagram. Finding 7: The text of the Land Use Element captures existing text from the previously adopted and acknowledged Metro Plan document and describes the relationship between the various planning documents that apply to making decisions about land use in Springfield.As such, the land use planning framework in Springfield will remain materially unchanged as a result of the amendments though the resources used to refer to properties' designations and to the designations' meanings will differ. The text amendments: • Transfer the relevant descriptions of Plan designations from the Metro Plan to the Springfield Comprehensive Plan with some revisions and updates to reflect what applies to Springfield, and in so doing: o Remove language that does not apply to Springfield (e.g., references to Eugene) o Revise the transferred Metro Plan text for Nodal Development, Mixed Use, Public Land and Open Space, and Residential designations to reflect amendments and clarify how they apply in Springfield • Add a section that clarifies the relationship of the Springfield Comprehensive Plan to the Metro Plan, functional plans, and Springfield's neighborhood refinement plans; and • Identify goals, policies, and implementation strategies within the Land Use Element Finding 8: The Springfield Comprehensive Plan Map accompanies the previously described text changes.The Map shows property lines based on tax lot lines; consolidates the Government and Education, Parks and Open Space, and other similar designations into one designation: Public Land and Open Space; and consistently shows Nodal Development as an overlay designation as opposed to a base designation and/or overlay designation depending on the location. These amendments do not materially change how land can be used or developed in Springfield and are a result of the work that would otherwise be necessary to interpret plan designations for specific properties where ambiguity remains on the Metro Plan Diagram in the case of the Metro Plan Diagram continuing to apply to Springfield. Attachment 7—Methodology for Springfield Comprehensive Plan Map describes the method the City used to interpret and apply existing designations to the Comprehensive Plan Map. Finding 9: The actions described in these Goal 2 findings align with Statewide Planning Goal 2, as they: (1) identify the issues of determining appropriate plan designations for specific properties where such determination is based on a generalized diagram that is not property Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 7 of 16 Ordinance No. 6463 Exhibit G Page 8 of 16 specific and that is unaccompanied by policy that would enable a solid understanding of how land can be used in Springfield's urbanized and urbanizable areas; (2) create solutions to address these issues as presented in the policies and implementation strategies of Exhibit A-2 Land Use Element of Springfield Comprehensive Plan as based on stakeholder input as described in the findings under Statewide Land Use Planning Goal 1; and, (3) make use of an easier-to-read Comprehensive Plan Map a reality (Exhibit A-1 Springfield Comprehensive Plan Map). Finding 10: The amendments do not elicit compliance with the remaining aspects of Goal 2, as they do not: (1) include taking an exception to Goal 2; and, (2) involve changes to the Springfield Development Code that create new regulations consistent with Goal 2, Part III, Sections F.1 and F.2 as demonstrated in the findings. CONCLUSION:Accordingly,the amendments meet Statewide Planning Goal 2. Statewide Land Use Planning Goals 3& 4:Agricultural and Forest Lands Finding 11: These Goals apply to land outside of Springfield's UGB, and as such, do not apply to the amendments. Statewide Land Use Planning Goal 5: Natural Resources, Scenic and Historic Areas, and Open Spaces Finding 12: Goal 5 does not apply to the map and text amendments to the Metro Plan and Springfield Comprehensive Plan. Springfield conducts its inventories of its natural, scenic and historic areas, and open space resources through separate processes and protects the significant resources through programs. These features are shown on specific maps, which have since been adopted via ordinance and acknowledged by the Oregon Land Conservation and Development Commission.The amendments do not include any changes to the adopted and acknowledged inventories or their protection. The waterbodies shown on the Springfield Comprehensive Plan Map (Exhibit A-1)are for illustrative purposes to orient map users to Springfield's geography.The text amendments to the Metro Plan and Springfield Comprehensive Plan do not relate to Goal 5. Statewide Land Use Planning Goal 6:Air, Water and Land Resources Quality Finding 13: Goal 6 does not apply to the map and text amendments to the Metro Plan and Springfield Comprehensive Plan.The amendments do not alter the City's acknowledged land use programs regarding the control of pollution to protect the quality of Springfield's air, water, and land resources and do not change the uses allowed to develop—whether outright or conditionally. The water resources, some of which are water quality limited watercourses, shown on the Springfield Comprehensive Plan Map (Exhibit A-1) are for illustrative purposes to orient map users to Springfield's geography. The amendments do not alter the Regional Transportation Plan or the City's acknowledged Transportation System Plan, the policies of which can influence air quality. Statewide Land Use Planning Goal 7:Areas Subject to Natural Hazards Finding 14: Goal 7 does not apply to the map and text amendments to the Springfield Comprehensive Plan and the Metro Plan as shown in Exhibits A and B.The amendments do not Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 8 of 16 Ordinance No. 6463 Exhibit G Page 9 of 16 alter the City's acknowledged land use programs regarding potential landslide areas and flood management protections. Statewide Land Use Planning Goal8:Recreational Needs Finding 15: Goal 8 does not apply to the amendments. The Recreation Element of the Springfield Comprehensive Plan and the Parks and Recreation Facilities Element of the Metro Plan guide the implementation of Springfield's recreational needs. Willamalane Park and Recreation District's Comprehensive Plan is the Recreation Element of Springfield's Comprehensive Plan. Changes to Willamalane Park and Recreation District's Comprehensive Plan and to the text of Metro Plan's Parks and Recreation Facilities Element are not part of the amendments. Statewide Land Use Planning Goal 9: Economic Development Finding 16: The Springfield Comprehensive Plan amendments (also referred to as "Springfield 2030 Comprehensive Plan" amendments)—adopted in 2016 as Springfield Ordinance 6361 and Lane County Ordinance PA 1304—expanded the Springfield UGB and Metro Plan boundary. This UGB expansion added land intended to allow Springfield to meet its long-term needs for employment based on the findings of the Commercial and Industrial Buildable Lands Inventory. Springfield assigned an Urban Holding Area —Employment(UHA-E) plan designation on a property-specific basis within the expansion area. The Oregon Land Conservation and Development Commission approved the expansion and corresponding Plan amendments in March 2019 (Approval Order 19-UGB-001900), thereby acknowledging the amendments. The UHA-E designation will remain in effect until the appropriate permanent employment designation is adopted through a City-initiated planning process or an owner-initiated plan amendment process, which is not part of this present application. The amendments to the Metro Plan and Springfield Comprehensive Plan retain the property-specific, interim employment designations in the UGB expansion area and do not change the acreage available for employment land identified in the Commercial and Industrial Buildable Lands Inventory in Springfield's UGB, including land within city limits.The amendments do not fundamentally change the goals and policies applicable to economic development in Springfield, which are the policies in the Economic Element of the Springfield Comprehensive Plan.Accordingly,the City remains in compliance with Goal 9. Statewide Land Use Planning Goal 10: Housing Finding 17: In August 2011, the Oregon Land Conservation and Development Commission acknowledged the Springfield 2030 Refinement Plan Residential Land Use and Housing Element ("Housing Element"). This Element is part of the Springfield Comprehensive Plan.The amendments do not involve substantive changes to the acknowledged goals and policies of the Housing Element of Springfield's Comprehensive Plan.This Element supplements and refines the Residential Land Use and Housing Element of the Metro Plan, which also applies to land use planning for housing in Springfield. The amendments do not change the goals and policies therein. The amendments to the Metro Plan Diagram and to the Springfield Comprehensive Plan for adoption of a Springfield Comprehensive Plan Map do not redesignate property and therefore do not affect the Buildable Lands Inventory.Accordingly,the City remains in compliance with Goal 10. Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 9 of 16 Ordinance No. 6463 Exhibit G Page 10 of 16 Statewide Land Use Planning Goal 11:Public Facilities and Services Finding 18: Goal 11 does not apply to the amendments. Goal 11 requires Springfield to plan and develop a timely, orderly, and efficient arrangement of public facilities and services to serve as a framework for urban and rural development. Pursuant to OAR 660-011-0020(2), a public facility plan must identify significant public facility projects which are to support the land uses designated in the acknowledged comprehensive plan.The Eugene-Springfield Metropolitan Area Public Facilities and Services Plan (PSFP) and the Springfield 2035 Transportation System Plan (TSP) are the City's acknowledged public facilities and transportation system plans that inform infrastructure investments (i.e.,water, stormwater, wastewater, transportation, and electricity) in Springfield.The amendments do not entail changes to the acknowledged TSP or PFSP, nor do they change the acknowledged comprehensive plans (Metro Plan and Springfield Comprehensive Plan) in ways that would require additional or different public facilities projects in the PSFP or TSP.The Goal 12 findings below further address transportation planning. Statewide Land Use Planning Goal 12: Transportation Finding 19: The Transportation Planning Rule(OAR 660-012-0060) implements Goal 12. OAR 660-012-0060 requires a local government to establish mitigation measures if an amendment to an acknowledged functional plan, comprehensive plan, or land use regulation would "significantly affect an existing or planned transportation facility." Subsections (1)(a)-(c) determine whether the requested amendments to the Metro Plan and Springfield Comprehensive Plan significantly affect a transportation facility. Finding 20: An amendment to an acknowledged comprehensive plan "significantly affects"a transportation facility under Subsection 1(a) if it: "Change[s]the functional classification of an existing or planned transportation facility(exclusive of correction of map errors in an adopted plan)."The amendments do not change any functional classification under OAR 66-012-0060(1)(a) as shown in Exhibits A and B. Finding 21: An amendment to an acknowledged comprehensive plan "significantly affects" a transportation facility under Subsection 1(b) if it: "Change[s]standards implementing a functional classification system."The amendments do not change the City's standards for implementing its functional classification system under OAR 66-012-0060(1)(b) as shown in Exhibits A and B. Finding 22: Under Subsection (1)(c), an amendment to an acknowledged comprehensive plan "significantly affects" a transportation facility if it: (A)results in types or levels of travel or access inconsistent with the functional classification of a transportation facility;(8)degrades the performance of a transportation facility such that it would not meet performance standards identified in the TSP or comprehensive plan;or(C)degrades the performance of a transportation facility that is otherwise projected to not meet the performance standards in the TSP or comprehensive plan. To determine whether the amendments"significantly affect" a transportation facility within the meaning of(1)(c), a local government should compare the most traffic-generative use reasonably allowed under current land use requirements with the most traffic-generative use reasonably allowed under the amendments.The amendments to the Metro Plan and Springfield Comprehensive Plan do not change the uses that the Springfield Development Code allows outright, conditionally allows, or prohibits. The amendments do not change the most Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 10 of 16 Ordinance No. 6463 Exhibit G Page 11 of 16 traffic-generative uses reasonably allowed. Accordingly, the amendments do not result in any of the effects described under (A)-(C). OAR chapter 660, Division 12 includes provisions adopted under the"Climate Friendly and Equitable Communities" rules adopted and certified effective on August 17, 2022, as amended by temporary rules effective May 12, 2023 through November 7, 2023. These provisions are either not yet operative for the City of Springfield under OAR 660-012-0012 or apply only upon amendment to the Springfield Transportation System Plan. Amendments to Springfield's Transportation System Plan do not accompany the subject amendments, and therefore the remaining provisions of OAR chapter 660, Division 12, are not applicable. CONCLUSION: The amendments do not"significantly affect" an existing or planned transportation facility under OAR 660-012-0060(1)(a), (b), or(c) and thus comply with OAR 660-012-0060 and Goal 12 requirements. Statewide Planning Goal 13:Energy Conservation Finding 23: Goal 13 does not apply to the amendments. The City's acknowledged regulations that implement Goal 13 remain unaffected by the amendments.The amendments do not entail proposed development and do not change the types of development allowed outright or conditionally. Statewide Planning Goal 14: Urbanization Finding 24: The Oregon Land Conservation and Development Commission acknowledged Springfield's UGB expansion in 2019.The diagram and map amendments show the UGB as previously acknowledged in 2019. Finding 25: The 2019 acknowledgement brought land into Springfield's expanded UGB that was rurally designated by Lane County to new designations administered by Springfield: Public/Semi-Public, Urban Holding Area- Employment, and Natural Resource. Springfield applied these new designations on a property-specific basis. The diagram and map amendments retain the property-specific designations, with the exception of the Public-Semi-Public designation—the function of which is fundamentally unchanged.The Public/Semi-Public designation acknowledged in 2019 is to be named: Public Land and Open Space to provide a consistent naming convention throughout Springfield and to produce a map that is easier to read. The text amendments to the Springfield Comprehensive Plan to rename Public/Semi Public to Public Land and Open Space will not result in additional changes to the Springfield Comprehensive Plan or Metro Plan regarding the purpose or outcomes of this designation.As shown in Exhibit B, Metro Plan Chapter II-G: Metro Plan Diagram, will no longer apply to Springfield. Finding 26: The designations of remaining areas within Springfield's UGB (including property within the city limits) are more clearly represented with property lines on the Springfield Comprehensive Plan Map as compared to the generalized, large-scale Metro Plan Diagram.As previously noted,the amendments to the Springfield Comprehensive Plan Map depict the Metro Plan designations at a more precise scale as described in Attachment 7— Methodology for Springfield Comprehensive Plan Map and amend the Metro Plan to no longer show Plan Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 11 of 16 Ordinance No. 6463 Exhibit G Page 12 of 16 designations within the Springfield UGB (coterminous with the Metro Plan boundary) as shown in Exhibit B. These actions do not affect Springfield's approach to using land efficiently within its UGB through orderly and logical growth patterns as specified by Goal 14. CONCLUSION:Accordingly,the City remains in compliance with Goal 14. Statewide Planning Goal 15: Willamette River Greenway Finding 27: Goal 15 does not apply to the amendments. The Metro Plan Diagram has previously shown the Willamette River Greenway("Greenway") boundary, and the Greenway boundary will continue to be shown on the Springfield Comprehensive Plan Map in its existing location (Exhibit A-1). The Springfield Comprehensive Plan Map and associated amendments do not change to the applicability of the Greenway boundary as reflected in the previously acknowledged Metro Plan Diagram.Additionally, the amendments do not entail development activities within the Greenway boundary. Statewide Planning Goals 16-19:Estuarine Resources, Coastal Shorelands, Beaches and Dunes, Ocean Resources Finding 28: These Goals do not apply to the amendments. Land within Springfield's UGB (land within city limits and the urbanizable land outside city limits) is outside of Oregon's coastal areas to which Goals 16-19 apply. CONCLUSION:The amendments to the Metro Plan and Springfield Comprehensive Plan are consistent with the applicable Statewide Land Use Planning Goals based on the aforementioned findings and thus meet the criteria at SDC 5.14.135 and LC 12.300.030. ADOPTION OF THE AMENDMENT SHALL NOT MAKE THE METRO PLAN OR SPRINGFIELD COMPREHENSIVE PLAN INTERNALLY INCONSISTENT(SDC 5.14.135(8);LC 12.300.030.8) Finding 29: The Metro Plan anticipated Springfield would continue creating aspects of its land use planning program on a city-specific basis to reflect the unique needs of Springfield. The Metro Plan also anticipated the need for comprehensive land use planning to occur based on property- specific maps years before Springfield began work to create its Comprehensive Plan Map. Precedent for the amendments exists in the introductory text and explanatory text in Chapter II-G of the Metro Plan as described on pages iii-v, II-G-2—II-G-3, and IV-5 Policy 10. Finding 30: As summarized, pages iii through v state: ORS 197.304, adopted by the Oregon Legislature in 2007, requires Eugene and Springfield to divide the metropolitan UGB into two city-specific UGBs... The ORS 197.304 mandates are being carried out by the two cities and Lane County through a series of incremental actions over time rather than through a Metro Plan Update process.Some of the land use planning that has historically been included in the Metro Plan will, instead, be included in the cities'separate, city-specific comprehensive plans... The three jurisdictions' anticipate Lane County, Springfield, and Eugene Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 12 of 16 Ordinance No. 6463 Exhibit G Page 13 of 16 that the implementation of ORS 197.304 will result in a regional land use planning program that continues to utilize the Metro Plan and regional functional plans for land use planning responsibilities that remain regional in nature. City-specific plans will be used to address those planning responsibilities that the cities address independently of each other... ORS 197.304 allows the cities to adopt local plans that supplant the regional nature of the Metro Plan "[n]notwithstanding. . . acknowledged comprehensive plan provisions to the contrary."As these local plans are adopted, Eugene,Springfield and Lane County wish to maintain the Metro Plan as a guide that will direct readers to applicable local plan(s) when Metro Plan provisions no longer apply to one or more of the jurisdictions. Therefore, when Eugene or Springfield adopts a city-specific plan to independently address a planning responsibility that was previously addressed on a regional basis in the Metro Plan, that city will also amend the Metro Plan to specify which particular provisions of the Metro Plan will cease to apply within that city. Finding 31: Upon reference to the instances where the Metro Plan Diagram is "parcel- specific" as described on Metro Plan page II-G-2Z," page II-G-3 of the Metro Plan states, in part: There is a need for continued evaluation and evolution to a parcel-specific diagram. Finding 32: Policy IV.10 on page IC-5 states, in part: ... Until a city has adopted a city-specific comprehensive plan that explicitly supplants the relevant portion of the Metro Plan, that city's refinement and functional plans must be consistent with the Metro Plan.After a city has adopted a city-specific comprehensive plan that explicitly supplants the relevant portion of the Metro Plan, that city's refinement and functional plans must be consistent with its city specific comprehensive plan (instead of the Metro Plan). Finding 33: The primary purpose of amending the Metro Plan is to continue Springfield's evolution to a city-specific plan where appropriate. Planning actions in response to ORS 197.304 have included Springfield's acknowledged Residential Land Use and Housing Element, Economic, Urbanization, and Transportation Elements of its Comprehensive Plan. Springfield's creation of a property-specific Comprehensive Plan Map is the next step so that planning for future residential, economic, and other needs is based on clear information about Springfield's existing conditions. The necessary amendments to the Metro Plan, as previously described under Goal 2 findings and incorporated herein by reference, are for consistent and appropriate referencing and use of terms (Exhibit B). While the plan designations within Springfield's segment of the Metro Plan boundary east of Interstate 5 no longer apply to Springfield, the Metro Plan designations were transferred to Springfield's Comprehensive Plan Map and have been interpreted for specificity where needed (Attachment 7—Methodology for Springfield Comprehensive Plan Map). The remaining policy components of the Metro Plan will not conflict with this approach given the amendments do not involve new Metro Plan findings, new goals or policies in response to those findings, or modified text to existing findings, goals, or policies beyond clarifying where the Springfield Comprehensive Plan now applies. Z Parcels shown on the Metro Plan Diagram with a clearly identified Plan designation (i.e., parcels that do not border one plan designation); lands outside the UGB within the Metro Plan Boundary (though this instance no longer applies to Springfield); parcels with parcel-specific designations adopted through the Plan amendment process Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 13 of 16 Ordinance No. 6463 Exhibit G Page 14 of 16 Finding 34: The primary purpose of amending the Springfield Comprehensive Plan is to add a Comprehensive Plan Map and accompanying Land Use Element, which establishes Springfield's first property-specific Comprehensive Plan Map.The text supports the Map by describing how to use and interpret it. The amendments do not remove or create new goals, policies, or implementation strategies or actions for the Springfield Comprehensive Plan aside from the new Land Use Element.The amendments to the existing, adopted and acknowledged chapters of the Springfield Comprehensive Plan are administrative in nature and support consistent and appropriate use of plans and application of policy, as they reference which land use plan applies when reading a policy(e.g., Metro Plan, or Springfield Comprehensive Plan, or both). CONCLUSION: Based on the preceding findings, the amendments do not make the Metro Plan or Springfield Comprehensive Plan internally inconsistent.The criteria at SDC 5.14.135(B) and LC 12.300.030.B are met. REFINEMENT PLAN AND DEVELOPMENT CODE AMENDMENTS The applicable approval criteria for the amendments are at: SDC5.6.115(Refinement Plans, Plan Districts and the Development Code—Adoption or Amendment): (A) In reaching a decision on the adoption or amendment of refinement plans and this code's text, the City Council shall adopt findings that demonstrate conformance to the following: (1) The Metro Plan and Springfield Comprehensive Plan; (2) Applicable State statutes;and (3) Applicable State-wide Planning Goals and Administrative Rules. (B) Applications specified in SDC 5.6.105 may require co-adoption by the Lane County Board of Commissioners. CRITERION#1:SDC 5.6.115(A)(1): CONFORMANCE WITH THE METRO PLAN AND SPRINGFIELD COMPREHENSIVE PLAN Ild Finding 1: The amendments to the neighborhood refinement plans and Springfield Development Code are made in direct response to Criterion 5.6.115(a)(1)to align the text of affected refinement plans and Code to the Metro Plan and/or Springfield Comprehensive Plan where applicable. The Springfield Comprehensive Plan itself is the reason for the resultant amendments to the Springfield Development Code, and as demonstrated in the Findings under the approval criteria at SDC 5.14.135(B) and LC 12.300.030.B, incorporated herein by reference, precedent for the subject amendments exists in the Metro Plan. Finding 2: The amendments to Springfield's neighborhood refinement plans are limited to those described in Exhibits C, D, and E. Referencing the Springfield Comprehensive Plan instead of, or in addition to, the Metro Plan where appropriate and correctly referencing designation names to align with the Comprehensive Plan Map are not substantive policy changes that affect the future development character and function of Springfield's neighborhoods.The amendments depict Nodal Development areas as overlays and combine various public- and parks-based Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 14 of 16 Ordinance No. 6463 Exhibit G Page 15 of 16 designations into one designation name of"Public Land and Open Space" but do not change the original descriptions or intent of the various pre-existing designations.As such,the amendments are merely labelling changes to aid in making the Comprehensive Plan Map easy to read and in making policy easier to interpret and apply. Finding 3: The amendments to the Springfield Development Code in response to the creation of the Springfield Comprehensive Plan Map and Land Use Element of the Springfield Comprehensive Plan are also narrowly scoped and administrative in nature as shown in Exhibit F. The purpose of these changes is to aid the user of the Development Code by clarifying how to navigate applicable planning documents, whether the Metro Plan and/or the Springfield Comprehensive Plan. Finding 4: The text amendments to the Downtown Refinement Plan include a correction to clarify that the policies in the Refinement Plan's Public Spaces Element adopted by Ordinance 6148 (2005) replace the Public Spaces Element adopted in Ordinance 5316 (1986). During the process of researching Springfield's adopted refinement plans for this project, it became apparent that Ordinance 6148 did not clearly state whether the intent was to only amend but retain the original 1986 Public Spaces policies or whether the intent was to amend and replace the existing policies. Since 2005, however, the Downtown Refinement Plan was published on the City's website without the 1986 Public Spaces Element policies. Because retaining the 1986 policies would make the Public Spaces Element redundant to the added 2005 policies, the amendment clearly removes the 1986 Plan policies in favor of the 2005 policies, as shown in Exhibit E.These amendments do not change any other content of the Metro Plan or Springfield Comprehensive Plan. CONCLUSION: Based on the preceding findings, the refinement plan and Code amendments conform to the Metro Plan and Springfield Comprehensive Plan. Approval criterion SDC 5.6.115(A)(1) is satisfied. CRITERION#2:SDC 5.6.115(A)(2): CONFORMANCE WITH APPLICABLE STATE STATUTES Finding 5: ORS 197.175 generally requires the City to exercise its planning and zoning responsibilities in accordance with ORS Chapters 195, 196 and 197 and the goals approved under ORS Chapters 195, 196 and 197. Compliance with Oregon's Statewide Land Use Planning Goals are discussed under Criterion#1. There are no statutes in ORS Chapters 195, 196, or 197 that apply to the substance of these amendments. Finding 6: ORS 197.610 and OAR 660-018-0020 require local jurisdictions to submit proposed comprehensive plan or land use regulation changes to the Oregon Department of Land Conservation and Development(DLCD).As noted in the Procedural Findings on pages 3-4 of this staff report, notice of the proposed amendments was provided to DLCD more than 35 days in advance of the first evidentiary hearing concerning the amendments. CONCLUSION: Based on the aforementioned finding,the refinement plan and Code amendments are consistent with applicable state statutes and meet SDC 5.6.115(A)(2). Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 15 of 16 Ordinance No. 6463 Exhibit G Page 16 of 16 CRITERION#3:SDC 5.6.115(A)(3): CONFORMANCE WITH APPLICABLE STATEWIDE PLANNING GOALS AND ADMINISTRATIVE RULES Finding 7: The amendments to Springfield's neighborhood refinement plans and the Springfield Development Code are the result of changes to the Springfield Comprehensive Plan and Metro Plan and the desired consistency between all four planning tools.The findings addressing the approval criteria at SDC 5.14.135(A) and LC 12.300.030.A for amendments to the Metro Plan and Springfield Comprehensive Plan are incorporated herein by reference in demonstration that the refinement plan and Code amendments conform to Oregon's Statewide Planning Goals and Administrative Rules. CONCLUSION:The applicable approval criteria at SDC 5.6.115 are satisfied. VI. OVERALL CONCLUSION: The findings herein demonstrate the Metro Plan and Springfield Comprehensive Plan amendments are consistent with the applicable criteria of approval at SDC 5.14.135 and LC 12.300.030, and the amendments to Refinement Plans and the Springfield Development Code are consistent with the applicable criteria of approval at SDC 5.6.115. Staff Report—Springfield Comprehensive Plan Map Clarification Project Page 16 of 16 Ordinance No. 6463