HomeMy WebLinkAboutResolution No. 3699RESOLUTION NO, 3
A RESOLUTION ADOPTING THE WILLOW CREED SPECIAL
AREA STUDY AND AME NDING THE EUGENE - SPRINGFIELD
METROPOLITAN AREA GENE PLAN.
The City Council of the City of Eugene finds that:
11 The Eugene - Springfield Metropolitan Area General Plan
established a portion of the willow Creek Basin as an important
growth area of the community and included a portion of the Basin
within the urban growth boundary of the Metropolitan Plan.
219 As part of the Metropolitan Plan process a variety of
land uses were identified as appropriate within the Basin as urban
development occurred.
3. In February, 1982, the Planning Commission directed that
work be initiated on a Special Area Study in the willow Creek
Basin in order to establish public policy direction prior to de-
velopment proposals for the Basin.
4. As part of the development of � this Special Area Study
a citizen involvement process was established by the Eugene Citizen
Involvement Committee. The citizen involvement process included:
dialogue with major land owners in the Basin; a May 25, 19 8 2 meet-
ing held with residents and property owners of the Basin at Bailey
Hill elementary school, attended by about 50 interested individuals;
discussions and comments by interested parties through individual
meetings; distribution of about 650 copies of the draft Study (May
1982) to property owners, residents, and interested governmental
agencies; and consultation with the Metropolitan Area Plan Advisory
Committee regarding the Special Area Study,,
5. The draft Study contained a series of policy statements
and two alternative land -use configurations appropriate for the
Willow Creek Basin. All of the policies are consistent with
direction established by the Metropolitan General Plan. Alterna-
tive 1 of the two land-use arrangements reflected an employment
intensive scenario which could be appropriate for the Basin.
Alternative 2 reflected a focus on residential development in the
Basin. Because Alternative
1 provided for substantial motif ica-
tions to the Metropolitan General, Plan ■ it requires an amendment
to that document. Alternative 2 does not require such an amend-
ment. Both alternatives contained a variety of land uses which
were consistent with broad goals and policies established by the
Metropolitan Plan, the 1974 Community Goals and Policies document,
and the Eugene - Springfield Area Transportation 2000 Plan (T- 2000 ) .
6* On June 8,' 19 8 2 the Planning Commission conducted its
public hearing on the willow Creek Special Area Study. About 12
Resolution - 1
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individuals presented testimony to the Commission at this hearing.
The ma l on ty of the testimony supported the Study and generally
favored Alternative 1 - the employment intensive land -use alterna-
tive.
7. The Commission continued its deliberation on the Study
at its-meeting of June 14, 1982. At that time, based on testimony
it received at the public hearing, its own discussion, and the
background and supporting materials, including Statewide Goal and
local plan consistency analysis (Exhibit A) , ' and justification for
amendment to the Metropolitan Plan (Exhibit B) , the Commission
unanimously voted to forward the following recommendations to the
City Council:
a. Adopt the willow Creek Special Area Study
with Alterna 1;
b, Initiate amendment procedures to the Metro-
politan Plan following the process outlined in Chapter
IV of that document; and
C, Make a series of changes to the draft document.
8. The City Council initiated the Plan amendment procedure
as prescribed in Chapter ITT of the Plan document, on June 16, 1982
91 On July 12, 1982, the City Council conducted its own
public hearing of the Planning Commission's recommendations. This
hearing addressed the willow Creek Special Area Study and possible
amendment to the Metropolitan Plan.
Now ■ therefore, based on the above findings and actions,
BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF EUGENE, a
Municipal Corporation of the State of Oregon, as follows:
Section 1 . The policies set forth in the willow -Creek Special
Area Study are hereby adopted as a refinement to the Eugene -
Springfield Metropolitan Area General Plan for the willow Creek
Basin, and the explanatory text following the policies is recog-
nized as clarifying and explaining the intent of the policies.
Section. 2 . The Land Use Diagram included as recommended by
the Planning Commission is recognized as clarifying and providing
further explanation of the intent of the Metropolitan Plan Diagram.
To the extent the Special Area Study Land Use Diagram is incon-
sistent with the Metropolitan Area General Plan Diagram, the
General Plan Diagram is hereby amended.
Section 3 . The City Council adopts as additional findings,
the supporting text, maps, and tables contained in the remainder
Resolution -- 2
X699
of the Willow Creek Special Area Study'as recommended by the
Planning Commission.
Section 4 . The supporting materials concerning consistency
with Statewide Goals as set forth in Attac A, (Jun 15 ■ 1982
and June 14, 1982 memoranda) , attached hereto and incorporated
herein by reference, is recognized as providing further analysis,
support, and findings for the adoption of this Special Area Study
and Amendment of the General Plan Diagram. Attached. as further
findings in support of these actions is Attachment B, supplementary
findings, which are hereby adopted and the July 21, 1982 memorandum
from the Planning Department, the findings and policy statements and
amendments are likewise adopted.
The foregoing Resolution adopted the day of July. 1982,
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City Recorder
Resolution - 3
ATTACHMENT A -1 TO RESOLUTION NO.
MEMORANDUM
399 O F THE CITY OF 'UGENE 5 OR
"A
Date: June la, 1982
To: Mayor and Council
From: Planning Department
Subj : Planning Commission Recommendations ---
Willow Creek Special Area Study
I . Introduction
In February, 1982, the Planning Commission directed the staff to
initiate work on a Special Area Study in the W i l l o w Creek Basin which has
been identified in the Metro Plan as a major growth area for the
community. The Commission felt it was important and appropriate to
establish pubs i cal ly adopted guidelines for development of this area
prior to consideration of major development proposals for land annexed to
the City.
On June 8, '1982, the Commission conducted its public hearing on the
draft W i l l o w Creek Special Area Study. The draft Study contained a series
of policy statements, elaboration and background material supporting
those statements, and two alternate diagrams for consideration by the
Commission. Alternative #1 reflected an employment intensive land-use
arrangement, while Alternative #2 emphasized residential development in
the Basin. Both alternatives contained a variety of land uses which were
consistent with broad goals and pol i-ci es established by the Metro Plan,
the 1974 Community Goals and Policies document, and T -2000.
About twelve individuals presented testimony to the Commission at
its hearing on this item. The majority of the testimony supported the
Study and generally favored Alternative #1 -- the employment intensive
land-use alternative.
The Commission continued its deliberation on the Study until its
meeting of June 14, 1982. At that time, based on testimony it received at
the public hearing, its own discussion, and the background and supporting
materials prepared by the staff, the Commission unanimously voted to
forward the following recommendations to the City Council:
1 . Adopt the W i l l o w Creek Special Area Study with Alternative
#1;
2 Initiate amendment procedures to the Metro Plan as
outlined in Chapter IV of that document; and
3. Make a series of changes to the draft document.
II. Proposed Technical Changes To Study
The f o l l o w i n g techn changes to the draft were recommended to the
Council and are shown in legisl format with underline
indicating additions and parenthesis ( ) indicating deletions.
1. Modify the expl anaati on of policy A-1, pages 4 and 5 to read,
"This policy is consistent with other pol i ci es in the
Metropolitan Plan which provide for annexation of industrial
land in conjunction with an approved capital improvement
program that outlines provision of sanitary sewer service to an
area. The Metro Plan policy also provides for interim sanitary
sewer service through acceptable (to both the city and
developer) facilities, such sewage lagoons, when a permanent
servicing plan has been established through an adopted capital
improvement program. Adoption of the City's capital
improvement program for FY 1982 -83, which identifies the West
Eugene Trunk as Eugene's highest priority for capital
improvements, helps fulfill this policy direction. Finally,
the Metro Plan contains policy language (policy #23, page III -
B -6, Aug. 1980 Metro Plan and policy #18, page 26 and 19, page
6, 1952 Plan Amendments) which support an aggresive annexation
program and servicing of designated industrial lands in order
to have a sufficient supply of "development ready" land. In
addition, this policy responds to Eugene's own economic
diversification efforts as outlined in `� Eugene's Economic
Diversification Program, Se t . 3 , 1981 which identifies
industrial sitin as one strategy to imp rove the economic
conditions of the community ^
2. Policy A -2, page 5 change to read, "Exce
as specially provided in Policy E-3, annexation of commercial
and residential land shall be deferred at least until sanitary
sewer service is available to the area, and other Eugene
annexation requirements are met . "
3. Policy D -1, page 9, under explanation, change to read, "The
community resource node concept is intended to maximize public
investment by providing land for facilities which can be shared
by various public, quasi = public , and appropriate private
activities. Under this concept, Eugene would acquire land for
the public resource node, making it available to various users,
including a r❑ ri ate social service agencies Ultimately,
si ting of the elementary school facility must be approved by the
School Board of District 4J, taking into account location of
other existing schools, attendance boundaries and other
pertinent factors. In any event, the proposed future
ac ui si ti on of this property should not be used to s_ top
deve lopment Plans when other approRriate ubl i c criteria have
been satisfied The ubl i c resource node on the Plan Diagram is
merely meant to schematically demonstrate this conce t, and is
not meant to 6 specific.
4. Policy E-3, page 10, change to read, "The City of Eugene shall
encourage annexation of the wetlands area and properties under
contiguous ownership in order to facilitate agreements fo.r
public management between the property owners and The Nature
Conservancy. In the short term a non -urban zoning
classification, such as AG, Agriculture and Crazing, shall be
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applied to these properties (until they are needed for urban
levels of development) until ap ate
conditions have been met to provide for urban development.
5. Page 18, Introduction to Section VII, add a new paragraph, "The
pl a�n diagram, adopted as art of this S eci al Study study ' is
intended to conceptually identify land- -use ' arrangements in the
Basin, which would ultimately be implemented by other more
specific actions For instance: the public resource
node on the p an di a ram i s shown schematically to demonstrate
the intent of the con ce t, and is not meant to be site specific;
2 neighborhood commercial facilities may be located in
residential areas as part of the process of urbanization ; and 3�
zonin and other implementation techniques will be used to
specifical define land-use arra su ested by the plan
d i a ram .
6. Add a new second paragraph to, the Introduction Section, page 1,
to read as follows:
"This study is in several sections as noted on the preceeding
Table of Contents The first section lists the summary of the
study and policies being recommended Each i n d i v i d u a l 01 i cy is
followed by a brief discussion of the of i cy . Addi ti onal
background information for the of i ci es as well as further
discussion of the land use alternatives and el ements of the
Wi llow creek Basin , are found in the latter sections 6 the
Study Policies are adopted by the City Council as _guidance for
decision-makin related to the Plan area � Ci ty programs
actions and decisions such as zone changes traffic pat tern
changes, and capital improvements, will be evaluated on the
basis of their ability to implement these policies as well as
other adopted city goals and pol i ci Because they are ado ted
by the Council as the City's guide for action , op _l i ci es are the
most important statements in the Study
7. On pages 5 and 6, modify the explanatory paragraph as follows,
"On property with slopes and elevations which fit criteria to
apply planned unit development procedures outlined in the South
Hills Study, the PUD procedures (should) shall i ncl ude
direction to. 1) mi nimize the effects of development on visual
assets; 2) cluster development away from potential and
identified problem soils, slopes and geologic conditions; and
3) maximize retention of existing vegetation. On properties in
or adjacent to designated natural areas, the PUD procedures
(should) shall include direction to: 1) transfer residential
densities from natural resource areas to buildable portions of
tax lots; 2) control storm drainage --- quantity and quality --
consequences on the natural area; and 3) use buffering
techniques such as vegetative landscape barrier or fencing to
protect the natural resource values of the site. On properties
bordering stream courses, the PUD, cluster subdivision or site
review procedures (should) shall include direction for
retention of natural vegetation and buffering of the stream
courses from development. This policy recognizes that under
Eugene's planned unit development regulations, a variety of
structure types and other neighborhood uses such as
"neighborhood commercial" are allowed in any residential
areas."
-3-
8. Page 19, under Public Resource Node discussion, change second `
sentence to read as follows, "while these types of facilities
are generally available within the community, this proposal
conceives of them being clustered in one area and located in
taxi mi t to other hi h -i ntensit land uses in the Basin".
9 . Page 25, under Plants and W i l d l i f e , change the first sentence in
the second paragraph to read, "At least three rare plants
(including the- Aster Curtis) do exist in the wet natural
resource area of the Basin (see Map H)."
10. Page 23, Under Discussion of Size, change second sentence to
read, "The special light industrial site in Alternative #2 is
split into approximately (two 50 acre pieces) sixteen separate
p arcels, possibly rendering it less desirable by a potential
major firm.
11. Map E in the draft document, change to include footnote for
Public Resource Node, and addition of high - density residential
south of commercial designation (see revised Map E attached) .
12. Modify Map B in the draft willow Creek Special Area Study to
show Eugene's City limits line (see revised Map B attached),
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ATTACHMENT A -2 TO RESOLUTION NO.
M E M O R A N D U M 3699 OF THE CITY OF EUGENE, OR
Date: June 14, 1982
To: Mayor and City Council
From: Planning Department
5ubj: Status Report /Plan Amendment Referral -- Willow Creek
Special Area Study
In February the P l a n n i n g Commission directed the staff to i n i t i a t e
work on the Willow Creek Special Area Study. Staff work on that document
was completed in May of this year. A copy of the draft document is
attached to faci l i tate revi ew by the Mayor and Counci 1 .
On June 8, 1952 the Planning Commission conducted its public hearing
on the draft Study. Based on the background information and public
testimony, the Commission has forwarded the following recommendation to
the Council concerning the Willow Creek study:
1. Adopt the Study as modified by the Planning Commission
(materials showing_ the Commission's recommended changes are
being prepared);
2. Initiate an amendment to the Metropolitan Plan to reflect the
fact that the recommended land -use diagram for the Basin is a
modification to the arrangement and allocations envisioned in
the General Plan.
The adoption process for this study is intended to coincide with
acknowledgement of the Metro Plan by the Land Conservation and Development
Commission (LCDC). The acknowledgement process will also i ncl ude
consideration of the Willow Creek Special Area Study. To accomplish this
objective, a tentative schedule has been prepared ( to the inside
front cover of the Study). In order to maintain the tentative time
schedule, the Council will be requested to initiate referral of a plan
amendment to the City of Springfield and Lane County at the Council
meeting of June 15. This action merely refers the proposal to the other
two jurisdictions for comment. It would and should not commit the Council
to a predetemi ned course of action.
Because of the generalized nature of the Metro Plan, it should be refined
in specific areas. In most cases, these changes or refinements will not
require a plan amendment and formalized modifications to the Metropolitan
Plan. However, when changes cross a threshold of impact, i.e. when
amendments would cause major changes to the Plan, then the plan amendment
process should be implemented. The recommendations of the Planning
Commission emphasize employment generating activities in 'the Basin and,
because of the change from the Metro Plan, would involve a plan amendment.
The Planning Commission's recommendation would reflect:
1. A major special light industrial site for activities
involving manufacture of high-technology I products located
i
in the center of the Basin, taking advantage of the gently
rolling terrain in the area;
Z. Designation of
land
for
light - medium industrial activities
at the northern
edge
of
the Basin along West 11th Ave.;
3. Medium-and high - density residential development clustered
in proximity to the employment centers in Willow Creek to
encourage the use of alternative modes of transportation;
4. Location of commercial activities at the northern edge of
the Basin in proximity to light-medium i ndustri al
activities and major transportation corridors.
In order to facilitate the review by other jurisdictions, the staff
has prepared a series of materials that would be included in justifying an
amendment to the Metro Plan reflecting direction established by the
Planning Commission's re.commendati on . Attachment A provides a discussion
of the consistency of the Special Study with the Statewide Goals.
Attachment B provides a discussion of support and needs for an amendment
to the adopted Eugene - Springfield Metropolitan Area General Plan as a
result-of the Planning Commission's recommendation on the W i l l o w Creek
Special Area Study.
Attachment A
Statewide Goal s
Although Statewide goals 1 through 14 are applicable to the Willow Creek
Special Area Study, Goals 5 (Open Space), 8 .(Recreational Needs), 9
(Economy), 10 (Housing), 11 (Public Facilities and Services) and 14
(Urbanization) are particularly salient. While LCDC goals are dealt with
in the policy section of this Study, pertinent goals are also discussed in
other sections of the Study as follows:
St
Goal 1,
Goal 2,
Goal 3,
Goal 4,
Goal 5,
Goal 6,
Goal 7,
Goal H,
Goal 9,
Goal lo,
Goal 11,
Goa 1 121'
Goal 13,
Goa1 14,
atewi de Goals
Citizen Involvement
Land Use Planning
Agricultural Lands
Forest Lands
Open Spaces, Scenic
and Historic Areas,
and Natural Resources
Ai r, Dater and Land
Resources Quality
Areas Subject To Natural
Hazards
Recreational Needs
Economy Of The State
Housing
Public Facilities And
Services
Transportation
Energy Conservation.
Urbani zati on
Special Study Discussion
Section III
Sections I, IV and VII
Section VIII
Section VIII
Section VIII
Section VIII
Section VIII
Section VI
Section VII
Section VII
Section V
Section IX
Sections VII and IX
Sections VI, VI, VII, VIII
and IX
The following is a discussion of the consistency between the W i l l o w
Creek Special Area Study and the Statewide Goals.
Goal 1 --- Citizen Participation: To develop a citizen involvement
program that insures the opportunity for citizens to be involved in all
phases of the planning process.
Discussion: Development of the W i l l o w Creek Special Area Study
occurred through the benefit of several citizen involvement techniques:
1. The area was identified as a major growth area through
development of the Eugene-Springfield Metropolitan Area
General Plan. Development of this planning document
occurred over a period of about five years and involved
over 250 public meetings and hearings. Major changes to
the Metropolitan Plan will involve further public hearings
through an established plan amendment process.
2. Development of the Willow Creek Special Area Study
involved discussion with representatives of some of the
A -1
major property owners in the Basin to gain their comments
on staff proposals.
3. Other property owners and residents were contacted on an
individual basis through mai 1 i ngs of the draft study.
This involved distribution of over 600 copies of the draft
Study, and an informational meeting conducted at Bailey
H i l l Elementary School on May 25, 1982. In these reviews,
the staff discussed (either through meetings or phone
conversations) ideas with and questions from of a number
of area property owners.
4. Because the Willow Creek Basin represents one of the major
growth areas of the City (into the 21st century) , and
because it is currently sparsely populated, the Planning
Commission itself plays an important role in advocating
for future generations of Eugeneans. This involves
balancing the Commission's role as policy developers with
one which assesses the needs and desires of the future
citizens living or working in the Basin. MAPAC will have
an opportunity to formally comment on the proposed
amendment.
5. The Metropolitan Area Plan Advisory Committee (MAPAC),
citizen involvement body for metropolitan wide planning,
has received continuous status reports and updates
concerning development of this Study. This provided a
metropolitan-wide perspective on public policy development
for the Ali 11 ow Creek Basi n .
The City's Citizen Involvement program received acknowledgement in
1978 by the Land Conservation and Development Commission (LCDC) as part of
the overall acknowledgement of Eugene's comprehensive planning program.
Development of the Basin w i l l continue to involve citizen input and
discussion through the public hearing processes which are part of public
actions such as annexations or rezoni ngs . Moreover, Lane County is holding
hearings on this proposed plan amendment, affording yet another mechanism
for citizen involvement.
Goal 2 w-- Land Use Planning-, To establish a land use planning
process and policy framework as a basis for all decisions and actions
related to use of land and to assure an adequate factual base for such
decisions and actions.
Discussion: A series of working papers containing information on
current land inventories and projected demands have been developed. For a
variety of reasons, including public cost efficiencies, the Metro Plan
identified the willow Creek Basin as a major growth area. The Wi 11 ow
Creek Special Area Study outlines a series of policy statements consistent
with adopted direction established by the - Eugene-Springfield Metropolitan
Area General P l a n , Eugene's Community Goals and Policies and Eugene's
Economic Diversification Program. Policies outlined in the Study are
designed to more specifically apply the development needs and public
actions which w i l l occur within the W i l l o w Creek Basin as part of the
normal urbanization process.
W
1. The working papers referred to above were. derived from an
t inventory, review and analyi s of a number of relevant elements
conducted as part of the development of the Metropolitan Plan.
These elements included population projections, land use and
housing (supply and demand) , public facilities and utilities,
and natural assets and constraints. The " Metroplitan Area
General Plan, Technical Supplement," is a product of these
working papers.
2. Discussion of alternative land use arrangements reflecting an
emphasis on residential use in the W i l l o w Creek Basin is
contained in the original draft of the Spec a l Area Study.
3. Coordination of the proposed plan amendment has occurred
through: (a)consultations with and requests for comments from
affected public agencies; referral and comments by other City
departments; and (c) referral, through processes outlined in
the Metropolitan Plan, of a proposed amendment to that document
to the City of Springfield and Lane County.
4. No exceptions to the LCDC' s Goal #2 w i l l be required by t h i s
plan amendment since any Goal #2 issues have been addressed
through adoption of the Metropolitan Area General Plan.
5. To the extent that the proposed plan amendment occurs shortly
after acknowledgement of the Metro Plan, such an immediate
amendment is necessary for the following reasons:
(a) Experience in continuing economic development programs of
the City of Eugene suggests that the major special light
industrial site in the W i l l o w Creek Basin is quite
attractive to large special light industrial firms. This
conclusion is based on discussions with at least one such
firm. Based on those discussions, it can be concluded that
advanced planning for the Willow Creek Basin, reflecting
the proposed amendment to the Metro Plan, will further the
City`s efforts to diversify its local economic base -- an
established goal of the City Council.
(b) Competition for such si ti ngs is intense both within and
outside the State. City involvement in this competition
reveals strong l ocati oval advantages for the City of
Eugene through proximity to the University of Oregon, lack
of competition of existing high-technology firms for a
local "labor pool" , and cultural and recreati onal
amenities for employees. This general competitive edge
will require supplemental action to provide a variety of
sites (both in terms of sizes and locations) which can
respond to the needs and requirements of potential high-
technology firms.
(C) The original comprehensive plan placed special light
industrial designation upon a property not clearly
suitable for those purposes by virtue of diversity of
.ownership and lack of a stheti c qualities, among other
factors. The need for a plan amendment at this time is
justified in order to correct this problem.
A -3
Goal 3 -- Agricultural Lands: 'To preserve and maintain agricultural
lands.
Discussion: The Study provides di sussi on of soils conditions in the
Basin. The Study notes that the Basin contains some of the least
productive agricultural soils in the metropolitan area, generally
consisting of Class III and Iii rated agricultural soils, with isolated
pockets of Class II soils on the flatland and Class VI soils in the upper
portions of the Basin. The Study concludes discussion on agricultural
uses in the Basin by noting that during deve l opment , of the Metropolitan
Plan, the relatively low degree of potential agricultural productivity in
the Basin was compared with other areas having greater agricultural
productivity. For this reason, among others, the Basin was identified as a
major growth area of the City and included within the adopted, site
specific urban growth boundary with commitment to urban levels of
development during the planning period. Focussing development in this
part of the metropolitan area reduces pressures for urbanization on
valuable farm land to the north. The reallocation of special light
industrial sites occasioned by the proposed plan amendment will not affect
agricultural operations in a degree different from the impact of the
unamended Plan.
Goal 4 -- Forest Lands: To conserve forest lands for forest uses.
Discussion: Designation of the Basin for urban development through
the Metropolitan General Plan effectively precluded lands within the
urban growth boundary for potential use as commercial forests. However,
Goal 4 also recognizes forested lands as significant for uses such as
watershed protection measures and situations where soil and topographical
conditions require maintenance of vegetative cover. The Special Study,
through a series of proposed policies, address these latter conditions.
Policy A -4 addresses a variety of issues including those identified in
Goal #4. It calls for the use of planned unit development, site review
and cluster subdivision procedures to address environmental issues of
slope; geologic and soil conditions; properties in or adjacent to
designated natural areas; and properties along natural stream courses.
Policy E -1 directs the City to work with Lane County to protect forested
slopes between the city limits and the ri dgel i ne of the Basin. This policy
suggests that one appropriate method of achieving this objective would be
to utilize as a model, Eugene's tree cutting ordinance (currently only i o n
effect within the City's 1 imits) .
Goal #5 -- Open Spaces, Scenic and Historic Areas, and Natural
Resources: To conserve open space and protect natural scenic resources.
Discussion: A major p ❑ftT ❑n of the W i l l o w Creek Special Area Study
is devoted to discussion of protection of natural resources. Proposed
policies A -4 and E -1 (see Goal #4 discussion above) , as well as C-3, D -1
E -2 and E -3 focus on Goal #5 issues. Policy C--3 addresses the concern for
protecting the wetlands area while controlling storm run-off (see Goal #6
for further discussion) . Policy D -1 would direct the City to explore the
possibility of acquiring land to site a variety of public services
including a major park site and community center. Discussion in the Study
itself details the use of this major park facility as w e l l as smaller park
facilities anticipated to be located throughout the Basin. Policy E -2 of
the Study would direct the City to acquire through a variety of mechanisms
A -4
a continuous corridor system along the ri dge l i ne of the Basin (continuing
a program already underway in the City's south hills) as well as an
interconnecting environmental /recreational /storm drainage system
throughout the Basin. This policy emphasises the importance' of similar
programs existing in the City and their application to the Basin itself.
Policy E -3 focuses on public actions which can be taken to protect a
sensitive wetland area, which has a variety of rare plants. Policy E -3
identifies public actions which should occur to encourage an appropriate
balance between the need to preserve this sensitive natural area and
provide for urban development in the Basin. In part, the allocation of a
s i g n i f i c a n t quantity of land for special light industrial uses reflects a
concern for the retention of open space through the development of a
"campus -like" setting for such facilities. To the extent this proposed
plan amendment creates a larger light industrial site for this purpose, it
advances the policy of Goal #5 as consistent with open space values.
Goal 6 -- Air, Water and Land Resources Quality: To maintain and
improve the quality of the air, water and land resources of the state.
Discussion: The nodal development concept upon which the Study is
,based, provides for the opportunity to cluster development around service
and employment activities which positively affect land and air quality of
the area. This responds to direction established through the Metropolitan
Plan. The issue of water *quality is specifically addressed through
proposed Policy C -3 which would direct the City to conduct study of
appropriate measures to control storm run-off. The discussion of this
policy notes that a balance must be maintained between the protection of
the bottom land in the Basin from storm run -off and the need to maintain
an adequate moisture level (both quantity and quality) for vegetation in
the protected natural areas. Little significant impact upon air, water
and land resource quality can be anticipated by the reallocation of
industrial lands through the proposed plan amendment. Creation of a large
special light site may facilitate single ownership and control over siting
of facilities, thereby increasing the ability to develop more unified and
e f f i c i e n t waste control measures.
Goal 7 -- Areas Subject To Natural Disasters And Hazards: To protect
life and property from natural disasters and hazards.
Discussion: The Study provides detailed discussion of potential
natural hazard areas in the Basin. Policy A -4 would direct the City to
utilize land use mechanisms such as planned unit developments, site review
procedures and cluster subdivisions to respond to these hazard areas.
Policy C -3 would direct the City to conduct an analysis and implement
appropriate measures to deal with urban level storm - run -off from the
Basin. This policy notes that care should be taken to ensure that
appropriate moisture levels ( quantity and quality) be maintained to
protect vegetation in the natural area.
Goal 8 -- Recreational Needs: To satisfy the recreational needs of
the citizens of the state and visitors. (See also discussion of park and
trail systems under Goal 5.)
Discussion: The Special Study contains. discussion of both passive
and active recreati on'al needs for the Basin. It sets forth public policy
which will assist in preserving sensitive natural areas and corridors, and
A-5
attaining public access to these properties. It also focusses on active
recreational needs of present and future residents of the Basin and
establishes policy to further investigate siting of a public resource node
which would contain, among other facilities, a community center and major
park.
Goal 9 --- Economy Of The State: To diversify and and improve the
economy of the state.
Discussion: The need to diversify the local economy has been well
established over the past fifteen to twenty years. During the last five
years, efforts have been intensified to achieve economic diversification
objectives of the community. The study responds to Goal 9 direction by
establishing public policy to actively annex lands designated for
industrial use in the Basin, and reaffirms the city's commitment to
expedite extension of sanitary sewer service to the Basin -- a critical
factor in the siting of employment' intensive firms. The study al so
responds to - Goal 9 di recti on by e stabl i shi ng l and -use patterns wh i ch wi 11
be attractive to firms seeking "campus -like environments" (also see
discussion under Goal #2 above.)
Goal 10 -- Housing: To provide for the housing needs of the state.
Discussion: The Metropolitan Area General Plan established the
W i l l o w Creek' Basin as a primary growth area for the city and metropolitan
community. The study refines this direction by providing direction to
locate multiple - family housing in proximity to employment, commercial and
service opportunities. Finally, the Study responds to direction
established in the Metro Plan to keep a six -to -ten year supply of
residential land in the City's limits by establishing annexation policy
for residential land i n - t h e Basin. It must be recognized, however, that
the plan amendment would result in less acreage available for residential
development within the Basin. In considering this reallocation, Goal #10
concerns have been addressed through a variety of measures, including
retention of medium-and high - density housing designations on land in the
northeastern portions of the Basin. Reduction in the amount of low - density
residential land will not affect the market for various types of housing
in the metropolitan area, because-,
(a) The overall supply of low - density residential land
anticipated by the Metro Plan is adequate to meet
projected demands for this housing type.
(b) The Metropolitan Plan anticipates timing of residential
land well into the future (estimated year 2000) . If more
quantity of this type of land is required, the factors
affecting land supply, such as timing and delivery of
public services, can be reevaluated in the future.
Goal 11 -- Public Facilities And Services: To plan and develop a
timely, orderly and efficient arrangement of public facilities and
services to serve as a framework for urban and rural development.
Discussion: Through adoption of the 1990 General Plan in 1972, the
Eugene--Springfield Metropolitan Area established one of the first urban
growth boundaries in the State. As subsequently mandated by the Land
A -6
Conservation and Development Commission, the urban growth boundary is the
outer edge of an area to receive urban levels of public services over a
specific planning period. The concept has worked well in this area. With
adoption of the Metro Plan (updating the 1990 Plan), the urban growth
boundary was expanded to include parts of the Willow Creek Basin. The
Metro Plan programmed this area to provide a portion of the required land
inventory needed for orderly growth of the community to about the year
2000. The W i l l o w Creek Special Area Study i denti f fes a series of public
facilities needed to ultimately provide service for the Basin, and
provides direction to implement these projects . Notably, the Study
identifies the fact that police, fire and services and some elementary
school capacity can be provided through existing facilities.
Goal 12 -- Transportation-, To provide and encourage a safe,
convenient and economic transportation system.
Discussion: The Eugene-Springfield Area Transportation 2000 '(T--
2000) Plan contains policy and capital project requirements intended to
guide development of the area's transportation systems to the end of the
century. While it identifies the street and highway network as the
backbone of the system, it also calls for efforts to encourage use of
alternate modes of transportation such as bicycling, walking, transit and
paratransit. The Study contains a series of policies which respond to
that direction. The study also provides for a clustering of several land-
use activities through a "nodal development" to facilitate walking and
bicycling, as well as efficient transit and paratransit service.
Goal 13 -- Energy Conservation: To conserve energy.
Discussion: ,The nodal development concept (discussed in Goal 12
analysis above) i s critical to both local and State energy conservation
efforts. Facilitating alternative modes of transportation is one method
of achieving conservation of petroleum-based fuels. The Study also
encourages construction of multi - family housing types, which are more
energy efficient than single - family units, both during construction and
use. Finally, development of the Basin will occur under city-wide codes
including Eugene's solar access provisions which maintains passive and
active solar energy options for current and future residents of the area.
To the extent that increased employment will occur in the Basin by virtue
of the proposed plan amendment, it w i l l fac i l i ti ate worker residency near
places of employment, thereby promoting energy efficiencies.
Goal 14 -- Urbanization: To provide for an orderly and efficient
transition from rural to urban land.
Discussion: Provisions of this goal direct the following:
Land within the boundaries separating urbani zabl e land from rural
land shall be considered available over time for urban uses. Conversion
of urban i zabl e land to urban uses shall be based on consideration of:
1.
Orderly, economic provision for public facilities and
a
services;
2. Availability of sufficient land for various uses to insure
choices in the market place;
A- 7
3. LCDC goals; and
4. Encouragement of devel opme.nt within urban areas before
conversion of urban i zabl a areas.
As noted in the draft Study and analysis of other Statewide Goals (see for
example Goals 2, 3 and 11) , the Willow Creek Basin has been identified in
the adopted Eugene - Springfield Metropolitan Area General Plan as a major
growth area of the community and included within the adopted urban growth
boundary of that document. This is consistent with earlier a n a l y s i s
conducted by the city of Eugene, which identified the western and
southwestern portions of the metropolitan area as primary growth areas for
Eugene and indicates that these areas can:
1. be provided with public services in the most cost-
effective manner;
2. provide a choice of land for future residential,
industrial and commercial activities in order to respond
to various market needs;
3. respond to direction established by the Statewide Goals;
and
4. respond to local goals to maintain a compact urban growth
form.
These are examples of the reasons that the Willow Creek Basin was
ultimately chosen to be included within the urban growth boundary. The
W i l l o w Creek Special Area Study refines broad land-use allocations for the
Basin provided in the Metropolitan Plan, and through policies addresses
the need to accomodate some of the metropolitan areas long-range growth
anticipated in the Metro Plan. The W i l l o w Creek Study attempts to balance
the need for intensive land uses and employment opportunities with the
need to respond to existing conditions, e.g. environmental concerns, as
part of the urbanization of the Basin. Early annexation of the
industrial ly -designated land and the wetlands area is meant to fulfill the
local goals of providing a sufficient supply of development-ready
industrial land and to protect a Goal 5 resource. As Policy A--2 of the
Study provides, conversion of the remainder of the Basin from urbani zabl e
to urban land will be deferred. The Study also responds to a basic
premise of the compact urban growth concept which directs that, intensive
urban land-uses most appropriately occur within an approved urban growth
boundary --- a foundation of Goal 14 concerns.
Remaining Goals 15 through 19 -- Not Ap-pl i cabl e .
Attachment B
Consistency with
Local Policy
Documents
INTRODUCTION
During the 1970s, two basic planning concepts were established i n
Eugene that directly affect future development of the W i l l o w Creek Basin:
l) The western and southwestern portions of the metropolitan
-area were established as the primary growth areas for
Eugene for at least the remainder of this century. The
Metropolitan - Area General Plan reinforces this policy
direction by identifying the Willow Creek Basin as an
important development area for Eugene.
2) The concept of development nodes was established in the
mid-1970s. Development nodes are meant to provide
facilities for living, working, recreation and commerce
within one general area. The development node concept is
especially critical in responding to adopted policies
pertaining to compact urban growth, efficient use of
public services and gaining maximum efficiency from the
area l s transportation system. This concept was first
established through the Goodpasture Island Study (June
1975), and further refined in the Coburg - Crescent Special
Area Study (July 1981) . Recognizing the value of the
concept, the Metro Plan calls for nodal development
patterns in the Willow creek Basin. Because of its
location in the southwestern portion of the metropolitan
area, the Basin is a logical continuation of the physical,
economic and social growth of the city of Eugene.
The purpose of the Special Area Study is to establish more specific
policy direction and land -use arrangements in the southwestern portion of
the metropolitan area -- the W i l l o w Creek Basin.
The willow Creek Basin is important for the future development of the
community because:
1. It is in proximity (approximately 10 minutes driving) to
Mahlon Sweet Field, the regional airport for the southern
Willamette V a l l e y ;
2. It is within 15 minutes driving time to downtown Eugene;
3. It contains large undeveloped parcels, which will provide
flexibility for future development as it occurs in the Basin;
4. It has interesting and varied topographical and
environmental. features providing a unique setting, which w i l l
be attractive to new business and residents of the Basin; and
5. It provides an opportunity for the community to encourage
development while meeting goals pertaining to compact urban
growth and transportation.
m
The following comprise major changes to the Metropolitan Plan
diagram (no text amendments are required) which would result from the
Planning Commission's recommendation
1. Redesignate land (about 100 acres) at the northern edge of the
Basin from special-light industrial to light-- medium
industrial;
2. Redesignate land (about 230 acres) generally shown for low-
density residential in the center of the Basin to special-light
industrial;
3. Designate all land at the western edge of the Basin between the
urban growth boundary and West 11th as medium-density
residential .
,The need for diversification of the local economic base is well
documented. Currently, while unemployment rates for the metropolitan
area are not officially calculated, data available from the State
Department of Labor placed the seasonly adjusted March 1982 unemployment
rate for Lane County at 13.1 %. This is higher than the national and State
averages and reflects a continued dependence upon certain types of
employment activities throughout the entire County.
Seven documents developed over the last few years are pertinent to
the discussion of need for alteration to land use arrangements for the
Wi 11 ow Creek Basi n as outl i ned i n the Metro PI an.
A. Metro Plan Context.
The entire W i l l o w Creek Basin was considered for inclusion within the
urban growth boundary established by ,the Eugene-Springfield Metropolitan
Area General Plan Ultimately, only a portion of the Basin was contained
in the adopted Metro Plan, with the remainder designated urban reserve.
Map B of the draft Study shows areas within the urban growth boundary and
urban reserve areas adopted as part of the Metro Plan. These actions are
supported by a series of background documents including Eugene's "Growth
Management Studies - -Phases I and II ", and working papers. developed and
technical supplement developed for the Metro Plan itself. By identifying
the Basin for future growth of the community, the Metro Plan established
the foundation for eventual urbanization of the area.
The Metro Plan as well as other planning documents of the City of
Eugene have established over time a nodal development concept which is
meant to provide facilities for living, working, recreation and commerce
within one general area. Other development nodes in Eugene include the
downtown area, Goodpasture I s l a n d Road and the Coburg - Crescent area.
The Planning Commission's recommendation, which involves an
amendment to the Metro Plan involves, several changes to that document.
All relate to land-use configurations generally depicted on the plan
diagram. However, the proposed changes are consistent with and supported
by adopted policies in the Metro Plan which provide a broad basis for
public policy decisions within the metropolitan area. The proposed
amendments are also consistent with the technical assumptions supporting
the Metropolitan Plan diagram and the urban growth boundary.
room
B. Metropolitan P l a n Support For P l a n Amendment.
A total of seven special light i ndustri al sites (about 885 gross
acres total) are designated in the Metro Plan. Those seven sites were not
designated to meet projected employment demand; they were designated to
respond to goals regarding diversification of the local economy. A number
of sites were designated to meet two objectives: (1) allocation of sites
to meet the cities of Springfield and Eugene needs; and (2) allocation of
sites in various size, configurations, and locations to allow choice among
several sites by potential special light i ndustri al firms. used
for selecting the seven s i t e s in the Metro P l a n include: (1) large
scale --- in excess of 50 acres; (2) five or fewer ownerships; (3) good
access to transportation facilities -- especially highways; (4) buffered
from detracting surrounding urban uses; (5) campus -like atmosphere; and
(6) the ability to extend services to the s i t e .
The following table summarizes size and ownership information for
each site designated in the Plan.
Jurisdiction
Name
Approximate Size
Number Of
(Gross Acres)
Ownerships
Springfield
N Gateway
185
5
Springfield
Pierce
60
1
Eugene
Cone - Breeden
115
1
Eugene
West Park
110
2
Eugene
Spectra - Physics 120
4
Eugene
West Terry
200
2
Eugene
S llth(Willow
Creek) 95
8
Seven Sites
885 Total Gross
Acres
Of the total 885 gross acre, the following assumptions
we.re used in developing the P l a n :
Public right -of -way (20% of gross) = 175 acres
Devoted to commercial use (10 acres per site) = 70 acres
Buffering /landscaping (20% of gross) = 175 acres
Net industrial use acreage = 465 acres
885 acres
By amending the Plan to substitute a 230--acre W i l l o w Creek special
light industrial site for the 95 -acre South 11th site, the gross acreage
for that designation in the Metro Plan would be about 1,020 acres, and the
net special light i ndustri al acreage would become approximately 590
acres. The amendment would not require alternation to the urban growth
boundary.
In its analysis of the treatment of the special light industrial
sites, the Industrial Study Task Force considered a March 5, 1980,
memorandum from the Metropolitan Area Planning Advisory Committee
(MAPAC), "Industrial Allocations in the draft Metropolitan Area General
Plan." In that memorandum, MAPAC examined 17 alternative sites, including
the W i l l o w Creek Basin.
The proposed 230 acre site was within a larger area examined by
MAPAC. MAPAC concluded the following regarding the W i l l o w Creek site:
There is potential to designate one or two sites in the W i l l o w
Creek Basin. Because there is ample vacant land in relative
large parcels, sites ranging from 50 to 200 acres in size could
be identified. The relationship of Willow Creek to the West
Eugene Industrial Area, and the Eugene east--west corridor
identified in the adopted Transportation Plan and the
relationship to other special light manufacturing sites
identified in the draft Plan (see shaded areas) and the Spectra-
Physics site (also shaded, see discussion under #1 in this
report) have a bearing on a possible designation in the W i l l o w
Creek Basin. -
A range of options or combinations thereof are available,
including:
(1) Expansion of the 130 -acre site already identified in the
draft Plan; it could easily be expanded to 200 acres and
medium - density uses could be shifted into the W i l l o w Creek
Basin or areas south of West 11th.
(2) Locate a site outside the draft urban growth boundary in
the Willow Creek Basin.
(3) Locate a site on the "speedway" property and shift medium
and high density residential uses to other locations
within the Willow Creek Basin.
West 11th and Beltline provide good
transportation access to the W i l l o w Creek Basin.
Improvements to West 11th between Beltline and
Green Hill Road would improve access to the
airport.
Advantages - Planned transportation improvements (Terry
Streets, 6th -7th Extension) and planned sanitary sewer
improvements (Terry Street or nest Eugene trunkline and
ancillary improvements) will open opportunities for annexation
and development in the west Eugene region. Willow Creek
presents a drainage basin which is largely undeveloped and
provides excellent opportunities for developing a balanced land
use system which, if properly planned, can complement
development and planning already completed 'within adjacent
areas of the city.
The Basin is attractive and the large parcels provide the
locational flexibility mentioned previously. A southward
extension of Beltline to 20th (See Map No. 8) would provide
improved access to parcels south of 20th.
r
The close proximity of the 230 acre site to other west Eugene special
• light industrial sites would be beneficial. In addi ton , the Willow Creek
site would be nearby housing. of the other Eugene sites, only the Cone -
Breeden site offers similar opportunities'.
The proposed 230 acre site is in one ownership. If the Plan is
amended, it would become the only site over 160 acres with parcels in one
contiguous ownership. The amendment would fulfill a need to have a site of
greater than 200 acres. Testimony at local hearings on industrial land
allocations have often focussed on such a need.
While the special light industrial site designated as part of the
Metro Plan process responds to these criteria, the land use arrangements
proposed by the Eugene Planning Commission better meets direction
provided by these criteria and other Plan policies.
I. size - The approximately 200 -acre special light industrial
site in Alternative #1 is in one ownership and can provide
siting potential for a major user. The special light industrial
site in Alternative #2 is split by W i l l o w ' Creek Road into
approximately two 50-acre pieces, possibly rendering it less
desirable by a potential major firm.
2. Ownership Patterns - The special light site designation,
resulting from the Planning Commission's recommendation, is in
one ownership. This compares to the fragmented ownership
pattern (see above table) existing in the site designated by the
Metro Plan. The ownership pattern occurring in the proposed
amendment mitigates land assemblage problems and make this site
more attractive for use by a major firm.
2. Access - While Alternative #2 currently has access to a
major arterial (West .11th Avenue) , upon extension of the
proposed arterial facility south from Bel.tl i ne Road, the access
to the special light industrial site in Alternative #1 would be
superior.
3. surrounding Uses - The topography of the site in Alternative
#1 provides natural buffering from existing transitional heavy
industrial uses to the north.
4. Campus-Like Environment - Some firms do ' prefer gently
rolling topographical condi tons . The site in Alternative #1
contains this type of condi ton . In addition, the site in
Alternative #1 would provide unobstructed views to the scenic
forested hills to the south and the natural wetlands area to the
east.
The projected demand for Metropolitan housing units within the three
residential density designations and the amounts allocated within the
adopted urban growth boundary are shown in the following table:
B--5
Plan Residential
Projected Demand
Allocations
Result Of
Designation
(No. of D . U . s)
(No. of D . U . s)
ail w Creek
Amendments
Low Density
42
43,925
42
Medium Density
10,280
14,965
13,896
High Density
4
5,650
5,650
59
64
62,171
*Note: This total includes 2,400 multiple-family units assumed for
downtown Eugene.
The shift in land uses from residential to industrial within the
Willow Creek Basin does not jeopardize either the overall allocation of
dwelling units or the al l Qcati ons among the three residential density
categories within the urban growth boundary. The shift does not
necessitate an expansion of the urban growth boundary to accommodate units
which would be "lost" through a change in the Plan designation.
In addition to the poi nts noted above, the Planning Commission's
recommendation provides a residential land use arrangement which responds
more efficiently to goals and policies of the community pertaining to
balanced land use and compact urban growth. This occurs through
clustering of the multiple-family land uses around the major servi and
employment centers, i . e . commercial and industrial land uses.
Several statements in the Metropolitan Plan support the proposed
plan amendment.
The Goal, Finding #5, Objectives #4, #5, and #8, and Policies
#19 and #22 found in the Economic Element of the Metro Plan, all
support modifications which would reflect a larger special
light industrial site located in the central portion of the
Basin, Essentially these statements outline one strategy to
respond to the need to diversify the local economic base. They
direct the reservation of several areas within the urban growth
boundary for large-scale, campus -type, light manufacturing
,uses, continually evaluating other si tes. i n . and around
Springfield and Eugene for potential light-medium industrial
and special-light industrial uses. Shifting of the special-
light industrial site to the central portion of the Basin and
designation of property at the northern edge of the Basin to
light - medium industrial use responds to this direction.
C. 1974 Community Goals and Policies Document.
The 1974 Community Goals and Policies Document support the need to
diversify the local economy. Policies #2 a and #2 b direct the City to
pursue efforts which would diversify the local economy.
D. Eugene And Site Selection By High Techonol gy Firms,
Economic Consultant Oregon, May 1981
r
� �J
� r
This document addresses concerns of high technology firms i n
re] ati on to si ti ng of new faci l i ti es. Fi rms surveyed as part of thi s
study rated their preferences for different combinations of topography
and vegetation. The results reflected a strong preference for high -image
sites. Shifting of the special light industrial site to the center of the
Basin responds to this desire and would provide Eugene with an expanded
inventory of attractive sites for major high-technology firms .
E. Industrial Lands Task Force Report.
The report of the Industrial Lands Task Force, April 1981, reviewed
and supplemented findings and policies pertinent to industrial locations
outlined in the Metro Plan. The report finds that;
1. Important locational factors indentified for high -
techno l ogy firms i ne l ude proper plan designation, proper
zoning designation, availability of public ci services,
compatability with existing and future surrounding uses
and image of the site.
2. The report also concluded that some of the largest
electronic firms ( as Tektronix and Hewlett-Packard)
are interested in sites of 150 acres, but noted that other
smaller fi rms* (compri the majority 'of the potential
users) were interested in sites between 10 and 50 acres in
s i z e .
3. In relation to light-medium i ndustri al activities, the
Report notes that the most recent industrial growth in the
metropolitan area has been almost entirely in the light -
medi um category.
4. The Task Force Report recommended that until more is
l earned about the demand for light-medium i ndustri al land,
the cities should continue to maintain a variety of sites,
fully serviced, in a variety of locations.
W hile the special light industrial site designated as part of the
Metro Plan responds to some of these criteria, the land use arrangements
proposed in the Planning commissions recommendation better meet the
direction provided by-these criteria and other locally adopted policies,
and need established in p of the Metro Plan and technical
supporting documents, such as the "Economic Working Papers.'
1. Size - The approximately 200 -acre special-light i ndustri'al
site in the Commission's recommendation is in one ownership and
can provide s -i ti ng potential for a major user. This would add a
second site to the L i-ty' s potential inventory of speci a l -
industrial sites in excess of 150 acres in size, thereby
providing greater degree of choice for major firms seeking
potential sites in the City. Because the special -light
industrial site identified in the Metro Plan is split into about
twenty separate parcels (not all of which are under one
ownership) , it may be less desirable by a potential major firm.
1
2. Access - while Alternative #2 currently has access to a
major arterial (west 11th Avenue) , upon extension of the
proposed arterial facility south from Bel tl i ne Road, the access
to the special -light industrial site in the Planning
Commission's recommendation would be superior.
3. Surrounding Uses - The topography of the site in Alternative
#1 provides natural buffering from existing transitional heavy
industrial uses to the north.
4. Campus -Like Environment - Some firms do prefer gently
rolling topographical condi tans . The site in Alternative #1
contains this type of condi tan . In addition, the site in
Alternative #1 would provide unobstructed views to the scenic
forested hills to the south, and the natural wetlands area to
the east.
In addition to the points noted above, by shifting the special light
industrial site to the center of the Basin, the Planning Commission's
recommendation provides a residential land use arrangement which
more efficiently to goals and policies of the community pertaining to
balanced land use, transportation and compact urban growth. This occurs
through clustering of the multiple family land uses around the major
service and employment centers, i . e . commercial and industrial l and uses.
F. Eugene Economic Diversification Program.
On September 23, 1981, the Eugene city Council adopted the City's
Six -Point Diversification Program. That document outlines six specific
actions the City will embark upon to diversify the local economy. Those
points are: 1 ) i ndustri al siting; core area development; small business
assistance; destination point activities; employment and training
programs; and cap.i tal improvement projects. Two of these six points are
particularly pertinent to the W i l l o w Creek Special Area Study. Point 1 -
industrial siting - anticipates provision of a variety of siting
opportunities for industrial firms which wish to expand or locate in the
community. Point 6 - capital improvement projects - identifies continued
improvement and expansion of the City's - i of ra structure as critical to
diversification of the local economic base. The W i l l o w Creek study, both
through policy and proposed land-use configurations, directly responds to
these points.
The Basin is identified in the Metro Plan as an important growth area
of the metropolitan community. It includes land which is contained within
the adopted urban growth boundary (which is appropriate for extension of
key urban services as the metropolitan area grows), and land identified as
urban reserve (which is identified for extension of the urban growth
boundary beyond the planning period of the Metro Plan). Both the urban
growth boundary and urban reserve areas of the of the Willow Creek Basin
are shown on Map B of the Study document.
G. 2000 Transportation Plan (T- 2000).
The areawi de transportation plan, T-2000, is a functional plan
intended to guide development of transportation facilities to serve the
metropolitan area. It emphasizes streets and highways as the backbone of
, M1100
the area's transportation facilities for the next twenty years. It also
focuses on pol i es intended to maximize the capacity of existing and
future facilities by suggesting land-use arrangements and capital
improvements which may encourage the use of alternate modes of
transportation, such as bicycling, walking, pa ratran s i t and transit. The
W i l l o w Creek Special Area study responds to this direction by providing
draft policies which will guide capital improvements in the' Basin and
land -use arrangements which will encourage alternative transportation
modes.
pl j finelg
epl ng
ATTACHMENT B TO RESOLUTION NO,
3699 OF THE CITY OF EUGENE. OREGON
In addition to the specific findings referenced, in Resolution
No. 3699, the City Council of the City of Eugene adopts the follow-
ing supplemental findings to justify the Metropolitan Area General
Plan amendment and adoption of the willow Creek Special Area Study:
10 LCDC Goal 1 (Citizen Involvement).
(a) Further proceedings for citizen involvement
have occurred through public hearings before the Lane
County Planning Commission and Board of County Commis-
sioners and the City of Springfield Planning Commission
and City Council.
20 LCDC Goal Z .Land Use Planning} .
(a) An additional working paper not referenced
in the initial findings provides further evidentiary
support for the plan amendment and special area study
adoption, the Draft Technical Supplement to the Metro-
politan Area General Plan, issued in June, 1982.
(b) The Urbanization Goal, LCDC Goal 14, is not
directly applicable to the subject plan amendment. No
change in the urban growth boundary is proposed by
this plan amendment. The assumptions. findings and con-
clusions in the Metropolitan Area General Plan and its
supporting documents offer further legal and factual
justification for this plan amendment and special area
study -adoption.
(c) The process of a discrete plan amendment in
connection -with the adoption of the W' llow Creek Spe- -
vial Area Study does not open for reconsideration all
of the decisions reached in the enactment of the general
plan. Two suggestions were made in the course of the
plan amendment proceedings for additional plan amend-
ments: expansion of the urban growth boundary to include
property owned by Mr, Gordon Elliott; and, removal of
the special light industrial designation from the west
Park property. Neither of these sites are within the
geographic area of this special area study and are,
therefore, beyond the scope, 1 e ga 1 ly and factually,
of these proceedings. The action requested by each of
these proponents may be initiated by applications for
privately - initiated plan amendments.
(d) The expansion of the amount of land desig-
nated as special light industrial within the Willow
Creek area is necessitated by City, experience in nego-
Attachment B -- Page 1
tiating for the location of large light industrial
firms in the City. These experiences suggest that
a 200 acre .site is needed for companies of a parti-
cular size. The lack of choice in the metropolitan
area for sites of this size requires the addition
of such a parcel to the industrial land supply.
(e) The willow Creek area is the best location
for placing such a large special light industrial
site because:
( 1) It is in the general area of the City
where a number of special light industrial sites
have been planned;
(2) Considerable interest has existed in
the new special light industrial site by Hewlett --
Packard. Irrespective of the outcome of these
discussions the negotiations revealed the market
advantages of this site compared with other
special light industrial designated and non- -
designated parcels in the metropolitan area;
(3 ) Creation of a major employment base
in the willow Creep area which is largely un-
developed) will allow integrated and comprehen-
sive planning around that employment center.
This integrated planning is more attainable
with the special light industrial site in the
interior of the willow Creek Basin;
(.4) other available parcels sufficient
in size to meet industrial land demand of this
quality are not as desirable as the one desig-
nated in-the plan amendment. They are not
located in proximity with the other special
light industrial parcels, are not within the
urban growth boundary and areas that can be
readily serviced Ce.g. Elliott parcel), and
-f ai 1 to offer the same opportunity for inte-
grated planning with adjacent or nearby resi-
dential, commercial and public land uses. The
location of the special light industrial site
within the willow Creek Basin responds to and
is consistent with these policy directions
provided in the Metropolitan Area General Plan;
(5) From a larger planning perspective,
the willow Creek Basin is the logical place
for urbanization for Eugene. Expansion of the
metropolitan area to the north would require
large scale conversion of agricultural land;
expansion to the south and southeast would
Attachment B - Page 2
spawn development of the South Hills, an impor.
tant urban buf f Bring area, and create sign i f i cant
sewer and urban services delivery problems; and,
expansion to the northwest creates a potential
future compatibility problem with the airport
operations there.
�.f } The expansion of special light industrial
land supply within the Willow Creek Basin from a 95
acre bifurcated site with 8 ownerships to a single 230
acre site in one ownership does not require re- examina-
tion of the number or location of other special light
industrial sites in the metropolitan area for the
following reasons:
(1) The number of special light industrial
sites Uive) designated for Eugene in the Metro
Plan is not a direct function of immediate land
use demand or employment demand but is a result
of determinations reached in the Metro Plan as to
the amount, size, and location of special light
industrial sites needed to create a market for
such potential users, Replacement of a 95 acre
parcel with a 230 acre parcel still leaves a need
for 3 sites in the loo - 120 acre parcel size.
No evidence was presented in the hearings on this
plan amendment that such a supply is not needed.
(.Parenthetically, the table at page B -3 of the
June 14 memorandum contains a mis- statement. The
number of owners for the Cone - Breeden tract is 3
rather than 1.)
(2 ) Should future events prove that an over- -
supply of special light industrial sites exist,
cure may occur through the plan amendment process.
03 The elimination of the special light
industrial designation for the South llth (willow
Creek) light industrial site is not mutually ex.
clusive with the elimination of such designation
on the west Park site should evidence be presented
that an oversupply exists. In the absence of
such evidence, redesignation of the west llth
site is preferred over other sites because the
West llth does not meet the special, light indus-
trial site criteria in the Metro Plan as well as
other sites. It is held in larger number of
ownerships, adjacent to limited transportation
facilities in an area which is less buffered from
detracting urban uses offering less opportunity
for a "campus -like atmosphere ", than other spe-
cial light industrial sites.
Attachment B -- Pace 3
(g) Sufficient time for citizen involvement,
collection of necessary factual information, refine-
ment of issues and strategies, and identification
and resolution of conflicts with other governmental
units has been alloted in this plan amendment process.
Several public hearings have occurred before Eugene,
Springfield, Lane County, and L -COG . NoIntergovern --
mental conflicts have been 'Identified, And the fact-
ual analysis in support of the Metro Plan which was
developed, with citizen imput, over an extensive
period of time. No broad citizen opposition to these
changes has occurred which might necessitate a longer
evaluation period. Submission of the plan amendment
together with the Metro Plan for LCDC acknowledgment
in August, 1982, will allow, if the plans are acknow-
ledged, greater certainty in the short run for indus-
trial locations and urban services extensions.
(h) coordination of the draft plan' has occurred
with affected governmental agencies through referral
and comment. These include: EwEB; Lane Electric;
School District 4J; Lane County Public works; and,
DCLDO
3. LCDC Goal 5 (Open Spaces) .
(a) The plan amendment relies upon the same con-
flict resolution process for Goal 5 as contained in
the Metro Plan. The switch in locations of special
light industrial sites will not affect the accomoda --
tion reached in the Metro Plan for Goal 5 concerns in
the willow Creek Basin.
(b) Special treatment for the wetlands area is
provided in the text of the subarea plan as amended,
including but not limited to, early annexation for
resource protection.
(c) Special review will be given to the hydro-
logy of the willow Creek Basin prior to development
as explained in Policy C -3.
4, LCDC Goal 6 (Air, water and Land Resources)
(a) Minimal, if any, differences in automobile
emissions will exist by selection of an employment -
intensive land use scheme over a residential scenerio.
(b) Residential effluent discharge will be
roughly equal to the discharge potential for the em-
ployment-intensive land use arrangement for which the
plan is amended.
Attachment B - Page 4
(c) Annexation and urban development wi11 only
occur upon satisfactory provision of urban services.
50 LCDC Coal 11 (Public Facilities and Services),
(a) The timing and costs of public services ex-
tensions to the Willow Creek Basin are discussed at
pp. 5 - 7 of the July 21, 1982 staff report incorpor-
ated herein.
(b) The City of Eugene is committed in its
capital improvements program to provision of sanitary
sewer service to this area in the near future,
( c ) The alternative mechanisms for payment of
these capital expenses are discussed in the staff re-
port and include : payment from the general fund, a
capital improvements tax increment district or a spe-
cial systems development charge. It is reasonable
to expect additional property tax revenues from devel-
opment within the Basin as that urbanization progresses.
(d) Development of the Willow Creek Basin will
be less costly than development of other areas within
and outside the City to the immediate north, to the west,
or to the south - southeast. To the extent land must be
available for additional economic growth, the Willow
Creek Basin is a logical and economic place for that
growth to occur.
Attachment B - Page 5 .
ATTACHMENT B -2 TO RESOLUTION N0.
M E M O R A N D U M .3699 OF THE CITY OF EUGENE, OR
July 21, 1982
To: Mayor and Council
From: Planning Department
Subj : WILLOW CREEK SPECIAL AREA STUDY -- COUNCIL ACTION
I. Overview
On July 14, 1982 the Council conducted its public hearing on the Willow
Creek Special Area Study. As a result of those hearings, and Council
discussion, the staff was directed to prepare a series of possible modifications
to the text of the draft document for consideration at the meeting of July 21.
Those changes, as well as those which were recommended to the Council by the
Planning Commission, are included in this memorandum. Text changes are shown in
legislative format with underline indicating additions and
parenthesis ( ) indicating deletions. An adopting resolution and a revised set
of findings will be forwarded to the Council by courier.
II. Chan es Recommended By Planning Commission
The fol l owi -ng changes to the draft were recommended to the Council by the
Planning Commission.
I. Modify the explanation of policy A -1, pages 4 and 5 to read, "This
policy is consistent with other policies in the Metropolitan Plan
which provide for annexation of industrial land in conjunction with an
It
approved capital improvement program that outlines provision of
sanitary sewer service to an area. The Metro Plan policy also
provides for interim sanitary sewer service through acceptable (to
both the city and developer) facilities, such as sewage lagoons, when
a permanent servicing plan has been established through an adopted
capital improvement program. Adoption of the City's capital
improvement program for FY 1982--83, which identifies the Test Eugene
Trunk as Eugene's highest priority for capital improvements, helps
fulfill this policy direction. Finally, the Metro Plan contains
policy language (policy #23, page III -B -S, Aug. 1980 Metro Plan and
policy #18, page 25 and 19, page 6, 1982 Plan Amendments) which
support an aggresi ve annexation program and servicing of designated
industrial lands in order to have a sufficient supply of "development
ready" land. In addition, this of i cy responds to Eugene's own
economic diversification efforts as outlined in "Eugene's Economic
Di versi fication Program," 5e t.3 1981 which identifies
industrial s i ti n as one strate y to improve the economic conditions
of the community .
2 . Polic y A -Z, page 5, change to read, "Exce t
as s eci al ly provided in Pol-i cy E -3 annexation of commercial and
residential land shall be deferred at least until sanitary sewer
service is available to the area, and other Eugene annexation
requirements are met."
3 • Policy D -1, page 9, under explanation, change to read, "The community
resource node concept is intended to maximize public investment by
providing land for facilities which can be shared by various public,
q u a s i - p u b l i c , anal appropriate private activities. Under this
concept, Eugene would acqui r -e land for the public- resource node,
U14i
making it available to various users, i ncl u a ro ri ate social
service agencies Ultimately, siting r of Y the elementary school
facility must be approved by the School Board of District 4J taking
g
into account location of other existing schools, attendance
boundaries and other pertinent factors. In any event, the proposed
future acquisition of this property should not be used to sto p
development Plans when other appropriate, public criteria have been
sati sfi - ed , The public resource node on the Plan Diagram is merel
meant to schematically demonstrate this con ce and is not meant to
be site s pecific.
4._ Policy E -3, page 10, change to read, 'The City of Eugene shall
encourage annexation of the wetlands area and properties under
contiguous ownership in order to facilitate agreements for public
management between the property owners and The Nature Conservancy. In
the short term a non -urban zoning cl as si f i cation, such as AG,
Agriculture and Grazing, shall be applied to these properties (until
they are needed for urban l evel s of development) until app
conditions have been met to for urban level o meat . i ' —
5. Page 18, Introduction to Section VII, add a new paragraph, "The lan
di a ram, adopted as art of this Special Study Study is intended to
conceptually identify land-use arrangements in the Basin, which would
ultimately be implemented Ly other more s eci f i c ubl i c actions For
1 the ubl i c resource node on the � plan a diagram _m i s shown
instance: �._ _ �.
schematically to demonstrate the intent of the conceit, - and is not
meant to be site specific;
Q nei hborhood commercial facilities
be located in residential areas as _part of the rocess of
urbanization; and �J zonin and other implementation techni ues will
be used to s eci fi cal ly def i ne l and -use arr ements suggested by the
plan dia
6. Add a new second paragraph to the Introduction Section, page 1, to
read as follows:
"This study is in several sections as noted on the receedi n Table of
Contents The first section lists the summary of the study and
p olicies being recommended . Each i ndi vi dual policy is followed by a
brief discussion of the policy. Additional background information
for the policies as well as further discussion of the land use
alternatives and el ements of the Willow Creek Basin are found in
latter sections of the Study Policies are adopted by the City Council
as .. guidance for deci si on--mak� nq related to the Plan era a . City
ro rams, actions and decisions such as zone chap es, traffic
p attern changes, and capital improvements will be evaluated on the
basis of their ability to implement the - se pvl i ci es as well as other
adop City vq_al s and policies. Because . . t_ heY are adopted by
the Council as the City's wide for action olicies are the most
important statements in the Stud .
7. On pages 5 and 6, modify the explanatory paragraph as follows "On
g P ,
property, with slopes and elevations which fit criteria to apply
planned unit development procedures outlined in the South Hills
Study, the PUD procedures (should) shall include direction to: 1
minimize the effects of development on visual assets; 2} cluster
development away from potential and identified problem soils slopes
and geologic conditions; and P
3} maximize ze retent� on of existing
ng
vegetation. On properti in or adjacent to designated natural areas,
the PUD procedures (should) shall include direction to: 1 transfer
residential densities from natural resource areas to buildable
C C
portions of tax lots; 2) control storm drainage -- quantity and
quality - -- consequences on the natural area; and 3) use buffering
techniques such as vegetative landscape barrier or fencing to protect
the natural resource values of the -site. On properties bordering
9
stream courses, the PUD, cluster subdivision or site review
procedures (should) shall include direction for retention of natural
vegetation and buffering of the stream courses from development. This
policy recognizes that under Eugene's planned unit development
regulations, a variety of structure types and other neighborhood uses
such as "neighborhood commercial" are allowed in any residential
areas."
8. Page 19, under Public Resource Node discussion, change second
sentence to read as follows, "while these types of facilities are
generally available within the community, this proposal conceives of
them being clustered in one area and located in ,proximity to other
hi h- intensity land uses in the Basin" .
9. Page 25, under Plants and Wildlife, change the first sentence in the
second paragraph to read, "At least three rare plants (including the
Aster curti s) do exist in the wet natural resource area of the Basin
(see Map H)."
10. Page 23, Under Discussion of Size, change second sentence to read,
"The special light industrial site in Alternative #2 is split into
approximately (two 50 . acre pieces) sixteen separate arcel s, possibly
rendering it less desirable by a potential major firm.
11. Map E in the draft document, change to include footnote for Public
Resource Node, and addition of high-density residential south of
commercial designation (see revised Map E attached) .
12. Modify Map B in the draft Willow Creek special Area Study to show
Eugene's City limits line (see revised Map B attached) .
13. In the analysis of consistency with Statewide Goals, add a new
paragraph to the Goal 5 discussion which would read as follows:
Early annexation of the industrially designated land and
wetlands area is to fulfill the local oal s of provi-di ng a
sufficient su ly of development-ready industrial l and and to
p rotect a Goal 5 resource As Land Use Pol i cy 2 provi
conversion of the remainder of the basin from urbani zabl e to
urban 1 and wi l I be deferred
Addition of this paragraph will strengthen the Goal 5 analysis.
III. Modifications Re By Council
The following modifications are staff proposals in response to Council
direction at the meeting of Ju ly 14. p
1. Change Policy E--3 (page In of the draft report) to read:
(The City of Eugene shall encourage annexation of the wetlands
area and properties under contiguous ownership in order to
facilitiate agreements for public management between the
property owners and The Nature Conservancy. In the short-term a
non-urban zoning c l a s s i f i c a t i o n , such AG, Agriculture and
Grazing, shall be applied to these properties until they are
needed for urban levels of development.)
In o_ rder to facilitate agreements for rotecti on and public
management of the Iii 11 ow Creek wetl ands _area, the City of Eu ene
will initiate annexation of the wetlands area and conti uousl
owned buildable properties provided the three affected property
owners agree to such action. In the short--term, a non -urban
zonin cl assi fi cati,v , such as AG, a ri cul ture and Grazin
District-, shall be a lied to these properties until 4Rpropriate
conditions have been met to p_rovi de for urban development.
2. Change the explanation of policy C -3 (page 8 of the draft Report) to
read
Experience shows that increased urbanization will result in the
necessity to improve storm runoff facilities. In this case, the
existing Amazon Channel will become part of the major storm run-
off system for the Basin. (Further analysis will) A thorough
analysis shall indicate if ultimate urbanization of the Willow
Creek Basin will result in capacity or flow problems, and if so,
what remedial actions are necessary. Implementation measures
should attempt to balance protection of bottoml and in the Basin
from storm run -off against the need for maintenance of
appropriate moisture levels ( quantity and quality) for
vegetation in the natural area.
3. Add an additional financial section to the draft report which would
read as follows,
X. FINANCING
Development of the W i l l o w Creek Basin represents the equivalent of
construction of a new city. At ultimate development, the Basin could provide
homes for about 20,000 people, and places of employment for about 17,500
employees. This represents a city with a population roughly equivalent to the
cities of Milwaukee, Hillsboro or Albany (1980 populations) and employment
approximately equal to the combined levels of Albany and Millersburg. These
comparisons suggest that costs of providing services to the entire Basin can
appropriately be reviewed in the .context of capital costs required to develop a
new medium size city in Oregon. Information obtained from the Bureau of
Governmental Research, at the University of Oregon, indicates that the total
estimatated value of the fixed assets inventory for the City of Hillsboro, 1981
population of 28,650, is roughly $32.5 million. This excludes costs for
schools, electrical distribution systems, and transit facilities. significantly
this estimate is generally based on acquisition costs and not replacement costs.
It can be estimated that actual replacement costs could double the total value
of the fixed asset inventory, i . e . repl acment cost could be about $65 million.
Table 5 indicates that costs for delivery of services to the Basin (excludin
schools,-electrical distribution systems and transit facilities are currently
y
estimated to be about $26.5 - $28.5 million (1982 dollars) .
A. Estimated Service Costs In Willow Creek
Table 5 shows estimated costs by component and service which will
ultimately be involved in providing service to the W i l l o w Creek Basin.
5
� C
Table 5
Costs For Services In
Willow Creek
(1982 $OOOs)
Service
Component school Sewers Parks Transp Fire El ec /Water
Elementary 5000 -7000
Storm 1100
Sanitary 2400
Pub Resource 1250 -1500
Node
Neighborhood 625 -750
Park
Community 2000-3000
Center
Streets
Transit Sta
Eq u i p /Remode 1
Electricity
Transmission
Water
Transmission
11500
-
350 -400
8130
5475
Park Development 2000 -2500
These estimates reflect a broad overview of potential public service
delivery requirements based on preliminary layout and design concepts which may
change in the context of specific development proposals. The e sti mates in Table
5 indicate that the total costs of providing a full range of services to the
Basin, at full - -development, could be approximately $40 - $44 mil (in 1952
dol Data in Table 5 does not inc costs for facilities outside the
Basin which will be used to serve the area at fu deve
These data suggest that based on estimated replacement value of the fixed
asset inventory of the City of Hillsboro, delivery of services to the Basin may
be 40 percent of the cost of delivering comparable services in the City of
Hillsboro, i . e . the estimated costs of services for the Basin excl udi n
t 9
schools, electrical di stributi on system and transit facilities are $26.5 -
$28.5 million compared to an estimated $65 million for rep lacement of similar
services in the City of Hillsboro. This ref the fact that many existing
Eugene can be used to
facilities i n Eu
g meet the public e serve ce needs of the B asin.
.
For instance, the regional treatment center, fire and of i ce dispatch atch faci l'i ti e
p p s
all are in -place and available for use by the residents and businesses in the
Basin. Other savi ngs, such as the use of existing Fire Station #1C (immediately
U,
r
to the east of the Basin) contribute to the savings in public expenditures for
capital projects needed to service the Basin. This demonstrates that the nodal
development approach to urbanization, in the context of an already developed
City, can be a cost - effective method of dealing with required public
expenditures for capital projects.
B. Revenue
Table 5, does not identify sources of funds for development of the Basin. The
potential exists for funding participation by other agencies besides the City of
Eugene. As in all other newly developing areas of the City, Eugene will be
required to provide a substantial share of the funds needed to construct the
infrastructure outlined in Table 5. There are now three basic directions open
to the City to provide a long-term funding mechanism for these facilities:
1. The City could rely on the general fund to provide the majority
of revenue sources needed construct capital facilities in the
Basin.
2. The City could institute a mechanism which earmarks new tax
revenues 'generated from new construction in the Basin for
construction of capital facilities (a capital projects tax
increment district) .
3. The City could i .n sti tute a special systems development charge
for application to new construction in the Basin, with the intent
of using these funds for development of public capital
improvements in Willow Creek.
3. Add new policy B-2, to read as follows:
The City of Eugene shall investigate new methods of financing capital
projects required for development of the Willow Creek Basin.
As development occurs in the willow Creek Basin, public
financing of capital projects will 'be required. while these
capital improvements will occur over a long period of time,
identification of the appropriate revenue mechanisms to provide
the required financing can occur in the near future. Through the
Council Revenue and Resources Committee, these mechanisms might
be put in place in time for the C'ity' s FY 1983-84 Budget.
Examples of mechanisms which could be employed by Eugene might
include continued use of general fund sources, earmarki -ng of new
tax revenues generated from new construction in the Basin for
construction of capital projects in the Basin, or special
systems development charges applied to new construction in the
Basin and earmarked for construction of public capital
improvements in Willow Creek. The Revenue and Resource
Committee should also investigate funding for capital projects
which could be generated in new relationships with cooperating
public jurisdictions and the private sector as well as the City
of Eugene.
EPLNG
PLJFMEM4
1
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