HomeMy WebLinkAboutOrdinance 6314 03/11/2014ORDINANCE NO. 6314
AN ORDINANCE ADOPTING THE 2035 SPRINGFIELD TRANSPORTATION SYSTEM PLAN
(TSP) AS A REFINEMENT PLAN OF THE EUGENE - SPRINGFIELD METROPOLITAN AREA
GENERAL PLAN (METRO PLAN) FOR APPLICATION WITHIN THE AREA OF PLANNING
JURISDICTION OF THE CITY OF SPRINGFIELD AND ADOPTING A SEVERABILITY CLAUSE.
WHEREAS, the Eugene - Springfield Metropolitan Area Transportation Plan
(TransPlan) provides the basis for the Transportation Element of the Eugene - Springfield
Metropolitan Area General Plan (Metro Plan) and is a comprehensive 20 -year plan to
guide transportation investments within a shared Eugene - Springfield Urban Growth
Boundary (UGB); and
WHEREAS, Ordinance No. 6268 (City of Springfield) and Ordinance No. PA 1274
(Lane County) established a separate City of Springfield UGB pursuant to House Bill 3337
(2006) as codified in Oregon Revised Statute 197.304; and
WHEREAS, Oregon Administrative Rules (OAR) Section 660, Division 12, specifies
the requirements of the Oregon Transportation Planning Rule that requires cities and
counties to prepare and adopt local transportation system plans for lands within their
planning jurisdiction as part of their comprehensive plans [OAR 660 -12- 015(3) & (4)];
and
WHEREAS, the City of Springfield 2035 Transportation System Plan (TSP) is
comprehensive 20 -year plan to guide transportation investments within the City of
Springfield UGB and, upon adoption, will replace TransPlan as the Transportation
Element of the Metro Plan for the City of Springfield UGB; and
WHEREAS, TransPlan will remain as the Regional Transportation System Plan
(RTSP) for Eugene and Springfield until a new RTSP is adopted. An updated RTSP is being
developed through a regional process as outlined in a work plan agreed to with the Land
Conservation.and Development Commission; and
WHEREAS, the City of Springfield Planning Commission conducted a public
hearing on December 18, 2013, and provided a recommendation to the Springfield City
Council and Board of County Commissioners to adopt the Springfield 2035 TSP as an
amendment to the Metro Plan, the City's comprehensive plan; and
WHEREAS, Volume 2 and Volume 3 of the Springfield 2035 TSP contain
background information and data used to inform Volume 1; and
WHEREAS, substantial evidence exists in the record indicating that the proposal
meets the applicable requirements of the Metro Plan, Lane Code, and state and local
law; and
WHEREAS, the City Council conducted a joint public hearing on the proposal to
adopt Volume 1 of the Springfield 2035 TSP on February 4th, 2014 with the Lane County
Board of Commissioners, and is now ready to take action based upon the above
recommendations and evidence and testimony already in the record; and
NOW, THEREFORE, the Common Council of the City of Springfield does ordain as
follows:
Section 1: Volume 1 of the City of Springfield 2035 Transportation System Plan as shown
in Exhibit 'B' is hereby adopted as an amendment to the Eugene - Springfield
Metropolitan Area General Plan.
Section 2: The prior policies and plan designations repealed or changed by this
Ordinance remain in full force and effect to authorize prosecution of persons in violation
thereof prior to the effective date of this Ordinance.
Section 3: If any section, subsection, sentence, clause, phrase or portion of this
Ordinance is for any reason held invalid or unconstitutional by any 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 portions
thereof.
FURTHER, although not part of this Ordinance, the Common Council of the City
of Springfield adopts findings as set forth in Exhibit 'A' attached and incorporated by this
reference, in support of this action.
Adopted by the Common Council of the City of Springfield this 11 day of
MARCH , 2014 by a vote of 5 in favor and 0 against.
Approved by the Mayor of the City of Springfield this 13 day of
MARCH , 2014.
ATTEST:
Mayor
�.
City Record #r
REVIEWED & APPROVED
AS TO FORM
DATE: -3-j
OFFICE OF CITY ATTORNEY
ORDINANCE NO. 6314
EXHIBIT A, Page 1 of 48
Staff Report (including supplemental findings 2124114)
Metro Plan Type II Amendment -Type IV (Legislative) Procedure
Springfield 2035 Transportation System Plan
Project Name: Springfield 2035 Transportation System Plan (TSP)
Project Proposal: Amend the Metro Plan to include the Springfield 2035 TSP and address applicable
Statewide Planning Goals.
City of Springfield Case Number: TYP413 -00009
Lane County Case Number: PA 1303
Application Submitted Date: December 3rd, 2013
DLCD Notification Date: November 10, 2013
Referral Notice to the City of Eugene: December 9, 2013
City of Springfield Planning Commission Hearing: December 181h'2013
Lane County Board 1" Reading: January 14`h, 2014
Joint City Council and Board of County Commissioners Hearing: February 4`h, 2014 and February 18`h,
2014
I. EXECUTIVE SUMMARY
The Springfield 2035 Transportation System Plan (TSP) provides a 20 -year blueprint for how the City
should maintain and improve the transportation network to meet growth demands within Springfield's
Urban Growth Boundary (UGB). Until now, the 2002 Metro Area TransPlan has served as both the
adopted local TSPs for Eugene and Springfield and as the Regional Transportation System Plan (RTSP) for
the Central Lane MPO area. In 2006, House Bill 3337 was passed by the Oregon Legislature and required
the Eugene and Springfield to develop separate UGBs. With separate UGBs, the cities of Springfield and
Eugene have determined that it is preferable to develop city- specific local TSPs. Once adopted, the
Springfield 2035 TSP will supersede TransPlan as the City's specific refinement of the Eugene - Springfield
Comprehensive General Plan (Metro Plan) insofar as it affects transportation system issues with
Springfield and the Springfield UGB. Staff has prepared findings confirming that the TSP is consistent
with the Metro Plan. However, it should be noted that the 2002 TransPlan continues to serve as the
region's Transportation Planning Rule (TPR) required RTSP until such time as a new RTSP is adopted by
the appropriate MPO jurisdictions. The performance measures by which progress towards meeting TPR
requirements over the TransPlan planning horizon are evaluated for the Central Lane MPO area shall
also remain in effect until (1) both Eugene and Springfield have completed updates to their land use and
transportation plans, (2) a new assessment (based on analysis from both new local TSPs) of how well
the Region is addressing TPR requirements is completed, (3) a determination of how or if the current
performance measures need to be updated is completed, and (4) a new RTSP is completed and
adopted. Because it is important that the local TSP for Springfield continues to support the policies and
general objectives of the 2002 TransPlan until a new RTSP is adopted, Staff has prepared findings
EXHIBIT A, Page 2 of 48
confirming that the Springfield TSP is consistent with the 2002 TransPlan.'
The 2035 Springfield TSP ensures the vision for the transportation system meets community needs,
communicates the City's aspirations, and conforms to state and regional policies. The 2035 TSP includes
a total of 6 chapters, including: Chapter 1— Introduction; Chapter 2 —Goals and policies; Chapter 3 —
Transportation System Plan process; Chapter 4— Transportation planning tool box; Chapter 5—
Transportation plan; Chapter 6— Funding and implementation; and Chapter 7 — Code and Policy Updates.
II. BACKGROUND
The Springfield 2035 Transportation System Plan (2035 TSP) meets state requirements for a
transportation system plan and is a resource for future transportation decision making within the
City of Springfield. The 2035 TSP identifies the preferred future multi -modal transportation
system and the City's policies related to the transportation system. It also identifies the function,
capacity, and location of future facilities, and identifies planning -level costs for needed
improvements to support expected development and growth and possible sources of system
funding. This TSP is intended to provide the City with flexibility as staff, the public, and decision
makers prioritize and fund critical transportation investments.
This TSP provides:
• A blueprint for transportation investment
• A tool for coordination with regional agencies and local jurisdictions
• Information to ensure prudent and effective land use choices
• Solutions to address existing and future transportation needs for bicycles, pedestrians, transit,
vehicles, freight, and rail
The 2035 TSP is the transportation element of and a supporting document to Springfield's current
comprehensive land use planning document (Metro Plan, 2004 update) as required by state law.
The City updated the 2035 TSP goals and policies during the planning process and implemented the
Goal 12: Transportation element of the Metro Plan. The primary purpose of the goals and policies is
to guide future transportation related decisions in Springfield. Together with the Metro Plan, the
Springfield 2035 TSP helps the City accommodate new growth, and maintain and rebuild
infrastructure over the next 20 years consistent with a long -term vision.
The progress of this plan was guided by the Project Management Team (PMT) made up of City of
Springfield staff with input from the Oregon Department of Transportation (ODOT). The project was also
guided by a Technical Advisory Committee (TAC), Stakeholder Advisory Committee (SAC), the City
Council and the Planning Commission.
The TAC provided guidance on technical aspects of the 2035 TSP and consisted of staff members from
regional partners and local jurisdictions. The SAC ensured that the needs of people in the community of
Springfield are incorporated in the 2035 TSP. The CAC consisted of Springfield residents who provided
input throughout the process.
After a thorough planning process involving the general public, stakeholders, other agency staff and
local and regional appointed and elected officials, staff prepared this report evaluating the proposed
2035 TSP. The report includes findings which address relevant approval criteria as described in this
1 Findings noted in red font in this report were added or modified to address DLCD's comments
EXHIBIT A, Page 3 of 48
report. These findings provide a basis for concluding that the adoption of the 2035 TSP to replace the
2002 TransPlan as Springfield's local TSP meets the approval criteria found in SDC Section
5.14 -135 (as described.below) and Lane County Code Section 12.225.
III..FINDINGS
Procedural Requirements
Finding: For the purpose of serving as Springfield's local TSP, TransPlan will be replaced by the Springfield
2035 TSP. However, TransPlan will continue to serve as the Regional Transportation System Plan (RTSP)
for Eugene and Springfield until a new RTSP is adopted. An updated RTSP is being developed through a
regional process described in a work plan agreed to with the Land Conservation and Development
Commission. The Central Lane MPO member jurisdictions are in the process of refining the task details
and timelines in the existing RTSP update work plan with LCDC to more accurately reflect the
coordination challenges and various dependencies between the RTSP, local TSP, and land use planning
work that is underway. This includes future work needed to assess compliance with the TPR per capita
VMT reduction requirements or assess and incorporate updated performance measures in the Regional
Transportation System Plan (RTSP)' based on the analysis conducted for the Springfield and Eugene TSPs
after each local TSP is reconciled with any land use plan changes that are made through the processes
that are currently underway. As previously noted, until that work is complete, the current 2002 TransPlan
and its performance measures will remain in effect.
Finding: The planning year horizon for the Springfield TSP is 2435, consistent with the recently updated
Regional Transportation Plan (RTP), which is also 2035. The planning year horizon for the current RTSP
(i.e. TransPlan) is 2025 (as amended in 2010).
Although the horizon years for the 2035 TSP and the RTP are different than that of TransPlan on paper,
the total population and employment estimates, upon which the recommended multimodal projects
and policies in the TSP are based, are consistent. Detailed information received from LCOG provides the
following information:
• The 2002 TransPlan modeled year 2020 population and employment forecasts. Per information
received from LCOG, the 2020 total population forecast for the Metro Area is 325,400 people;
year 2025 total population was forecast as 351,263. The modeled population forecast for the
Central Lane MPO area upon which the 2035 TSP is based is 316,452 people, less than that of
both the 2020 and 2025 forecasts upon which TransPlan is based.
• According to LCOG, the 2002 TransPlan is based on year 2020 covered employment forecast for
the Central Lane MPO area of 164,100 jobs; in 2025 this increases to 176,004. The modeled
employment forecast for the Central Lane MPO area upon which the 2035 TSP is based is
164,110 jobs, less than that used in the 2025 TransPlan.
Based on these population and employment forecast comparisons, it can be concluded that the travel
demand forecasts associated with the needs, projects, and policies identified in the 2035 Springfield TSP
are less than the 2025 TransPlan travel demand forecasts. As a result, from an operational forecast
standpoint, the 2035 Springfield TSP is consistent with TransPlan. Further detail about the forecast
threshold consistency of these planning documents is provided in Attachment A.
' Trans Plan also continues to serve as the Region's Regional Transportation System Plan until the adoption of anew Plan. This
TSP is consistent with that Plan to the extent necessary to assure that the local TSP is not Inconsistent with the Regional TSP.
EXHIBIT A, Page 4 of 48
The 2035 Springfield TSP is also consistent with the 2002 TransPlan from a goals and policy standpoint.
Attachment B is a memorandum that provides a comparison and consistency evaluation between the
draft goals for the RTSP update and policies contained in the Eugene, Springfield, and Coburg TSPs
currently being prepared, and the existing Lane County TSPs and TransPlan. Each of these documents
has very similar goal and policy objectives and in no way in conflict with each other to the extent that
any one plan might undermine the implementation of another. It should be noted that while the
Springfield 2035 TSP does not specifically address or include the nodal growth policies that are identified
in the 2002 TransPlan, there is nothing in the 2035 Springfield TSP that would inhibit or discourage the
potential forgrowth in the nodal areas that have already been established in Springfield's current
comprehensive land use planning document (Metro Plan, 2004 update) and enabled through the City's
zoning and development code. Additionally, a similar or greater lever of alternative travel mode projects
are identified for implementation in these areas compared to TransPlan. Consequently, with the 2002
TransPlan still in effect as the adopted RTSP for the Central Lane MPO area and with the Metro Plan still
serving as the City's comprehensive land use planning document, adoption of the 2035 Springfield TSP
will not interfere with or undermine continued implementation and evaluation of TPR compliance or
progress as periodically assessed through the currently adopted 2002 TransPlan performance measures.
Finding: The Metro Plan describes itself as a framework plan that is intended to be supplemented by
more detailed refinement plans, functional plans, programs, and policies. (Metro Plan pg. 1 -6)
Refinements to the Metro Plan can include: (a) city -wide comprehensive policy documents, such as the
1984 Eugene Community Goals and Policies; (b) functional plans and policies addressing single subjects
throughout the area, such as the 2001 Eugene- Springfield Public Facilities and Services Plan (Public
Facilities and Services Plan) and the 2002 TransPlon; and (c) neighborhood plans or special area studies
that address those issues that are unique to a specific geographical area (Metro Plan pg. 1 -6).
Finding: The 2035 TSP is a single subject plan that is a type of functional plan of the Metro Plan. The
procedural requirements for amending the Metro Plan are now guided by recently adopted language in
Springfield Ordinance 6304, which amended Metro Plan Chapter IV requirements. Because Springfield
adopted a Springfield- specific UGB in 2011, this Metro Plan amendment is considered a "Type 11"
amendment, requiring approval by two governing bodies (City of Springfield and Lane County).
Springfield is considered the "home city' for this amendment. Lane County is included since there is still
some unincorporated land within the Springfield UGB.
Finding: The proposed Metro Plan amendment was initiated by the Director on December 3rtl, 2013. The
TSP is not site - specific and falls under the definition of a legislative action.
Finding: Amended Metro Plan Policy 8 et seq. requires notice to be given to other relevant governing
bodies. Notice was given to the City of Eugene and Lane County on December 91", 2013.
Finding: SDC Section 5.2 -115 and Lane County Code Section 12.040 requires that legislative land use
decisions be advertised 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 Friday, December 6th, 2013 in the Eugene Register Guard, advertising the
first evidentiary hearing before the City of Springfield Planning Commission on December 18th, 2013,
EXHIBIT A, Page 5 of 48
followed by a joint hearing before the Springfield City Council and Lane County Board of Commissioners
on February 4th, 2013 and Springfield City Council and Lane County Board of Commissioners
deliberation and consideration of adoption on February 18th, 2013. The content of the notice followed
the direction given in SDC Section 5.2 -115 and Lane County Code 12.040 for legislative actions.
Findine: The Director is required to mail notice to the Department of Land Conservation and
Development as specified in OAR 660 -18 -0020. A "DLCD Notice Proposed Amendment" was e- mailed to
the Oregon Department of Land Conservation and Development (DLCD) on November 14", 2013
alerting the agency to the City's intent to amend the Metro Plan to include the Springfield 2035 TSP. The
notice was mailed more than 35 days in advance of the first evidentiary hearing as required by ORS
197.610 (1).
Findine: ORS 197.047(4) requires the local government to mail a notice to every landowner whose
property would be "rezoned" as a result of an amendment to planning policies that would limit or
prohibit land uses previously allowed in the affected zone. No properties will be rezoned by the
proposed Metro Plan amendment. The proposed Metro Plan amendment does not change the allowed
uses on properties within Springfield's planning jurisdiction. Mailed notice to landowners is therefore
not required under the provisions of ORS 197.047(4).
CRITERIA OF APPROVAL
Springfield Development Code Section 5.14 -135 and Lane County Code Lane Code Section 12.225 list the
criteria to be used in approving or denying this Metro Plan amendment. The Lane County Board of
Commissioners and the Springfield City Council shall each adopt findings that demonstrate conformance
to the following:
(1) The amendment shall be consistent with the relevant Statewide planning goals adopted by the
Land Conservation and Development Commission; and
(2) Adoption of the amendment shall not make the Metro Plan internally inconsistent
CRITERION #1: CONSISTENCY WITH RELEVANT STATEWIDE PLANNING GOALS
Statewide Planning Goal 1— Citizen Involvement:
This goal outlines the citizen involvement requirement for adoption of Comprehensive
Plans and changes to the Comprehensive Plan and implementing documents.
Finding: This goal was met through an extensive public involvement process. A Public Involvement
Program for the update of the Springfield Transportation System Plan was developed in preparation of
the Project. This Program was reviewed and endorsed by the Committee for Citizen Involvement (i.e. the
Springfield Planning Commission). The Program outlined the information, outreach methods, and
involvement opportunities available to the citizens during the process.
EXHIBIT A, Page 6 of 48
Information was distributed and input solicited throughout the process. Opportunities for engagement
included: a project website (including web -based surveys); seven Stakeholder Advisory Committee (SAC)
meetings; seven Technical Advisory Committee (TAC) meetings; two public open houses and one listening
booth at the Sprout Farmers Market; targeted outreach with local community service organizations and
Planning Commission, City Council and Lane County Board of Commissioners public hearings and work
sessions .
As part of the Comprehensive Plan Amendment process, public notice of this Planning Commission
public hearing was sent to the interested parties list and published in the December 6", 2013 issue of
the Register Guard. Notice will be published again prior to the City Council public hearing. The notice
invited public input and included the phone number of a contact person to answer questions. The notice
also included the address of the City's webpage where the entire draft of the proposed 2035 TSP could be
viewed. As a result of this extensive public involvement process, the proposed Metro Plan amendment
meets the requirements of Goal 1.
Statewide Planning Goal — Land Use Planning:
This goal outlines the land use planning process and policy framework. The Comprehensive Plan was
acknowledged by DLCD as being consistent with the statewide planning goals.
Finding: This amendment to the Metro Plan is being undertaken to create the TSP in a manner consistent
with current conditions and citizen values. The amendment to the Metro Plan to include the
2035 Springfield TSP is being processed as a Type II procedure, which requires any applicable statewide
planning goals, federal or state statutes or regulations, Metro regulations, comprehensive plan policies,
and City's implementing ordinances be addressed as part of the decision - making process. Upon adoption,
this Springfield 2035 TSP will replace TransPlan (amended 2002) as Springfield's local TSP. Because
TransPlan will still serve as the Regional Transportation System Plan (RTSP) until the RTSP is updated (per
the LCDC work plan), the adopted performance measure in TransPlan will still be applicable to Springfield.
Once the Envision Eugene strategies, Eugene's multimodal projects and LTD's final transit network are
included in the LCOG travel demand model, both cities and the region can evaluate key performance
statistics, such as VMT per capita and mode split to establish appropriate performance standards that
allow the cities and the region to monitor over time progress toward this TPR criteria. Through the
Springfield TSP planning process, it has become clear that an update of performance measures need to
occur at the regional level (through the RTSP update process) to fully assess compliance with the TPR VMT
reduction requirements and to address, if necessary, performance measure objectives. The Springfield
TSP's consistency with TransPlan, and thus its performance measures are addressed throughout this
report.
Until now, TransPlan has served as the adopted TSP for both Eugene and Springfield. In 2006, House Bill
3337 passed requiring the two cities to develop separate UGBs. With separate UGBs, the State of
Oregon's Transportation Planning Rule (TPR) required that Springfield and Eugene develop city- specific
TSPs. The Springfield 2035 TSP is the City's first independent TSP. All noticing requirements have been
met. All applicable review criteria have been addressed within this staff report; therefore, the
requirements of Goal 2 have been met.
Statewide Planning Goals 3 & 4: Agricultural Lands and Forest Lands
Finding: These statewide planning goals relate to agricultural and forest lands in Oregon and are not
applicable to this proposed amendment.
EXHIBIT A, Page 7 of 48
Statewide Planning Goals — Natural Resources
This goal requires the inventory and protection of natural resources, open spaces, historic areas and
sites.
Finding: The City is currently in compliance with the State's Goal 5. The amendment does not alter the
City's acknowledged Goal 5 inventories or land use programs. No changes will occur to current natural
resource protections. Individual transportation project impacts are required to conduct a Goal 5 analysis
during each project development phase. As a result, this Metro Plan amendment is in compliance with
Goal 5 process requirements.
Statewide Planning Goal 6: Air, Water, and Land Resources Quality
To maintain and improve the quality of the air, water, and land resources of the state
Finding: The City is currently in compliance with Statewide Planning Goal 6. This proposed amendment
does not alter the City's acknowledged land use programs regarding water quality and flood management
protections. The Springfield 2035 Transportation System Plan was developed following the rules and
guidance found in Oregon Revised Statute 660 -012 and the Central Lane MPO Regional Transportation Plan
(RTP). Both outline strategies for decreasing vehicle miles traveled and single- occupancy vehicle trips,
which are intended to help improve air quality in the Central Lane MPO Area. As a result, this proposed
Metro Plan amendment is in compliance with Goal 6.
Statewide Planning Goal 7 —Areas Subject to Natural Hazards
To protect people and property from natural hazards
Finding: The City is currently in compliance with Goal 7. The amendment does not alter the City's
acknowledged land use programs regarding water quality and flood management protections. The City is
currently a participant in the National Flood Insurance Program administered by the Federal
Emergency Management Agency. The amendment does not alterthe City's participation. As a result, this
proposed Metro Plan amendment meets the requirements of Goal 7.
Statewide Planning Goal 8— Recreational Needs
This goal requires the satisfaction of the recreational needs of the citizens of the state and visitors and,
where appropriate, to provide for the siting of necessary recreational facilities including destination
resorts.
Finding: The Springfield 2035 Transportation System Plan includes facility improvements, both on- street
and off - street, intended to provide improved connectivity for pedestrians and bicyclists. The anticipated
off - street improvements were coordinated with Willamalane Park and Recreation District's recently
updated Parks Master Plan and would provide improved access to a variety of destinations within the
planning area. Some individual off - street path projects, such as the Glenwood Riverfront Path, meet a
recreational need in addition to a transportation need. The proposed Metro Plan amendment is consistent
with Goal 8.
Statewide Planning Goal 9: Economic Development
To provide adequate opportunities throughout the state for a variety of economic activities vital to the
health, welfare, and prosperity of Oregon's citizens.
EXHIBIT A, Page 8 of 48
Finding: The City is currently in compliance with Goal 9. The adoption of the Springfield 2035
Transportation System does not alter the City's compliance with Goal 9. The amendment seeks to
provide a multi -modal transportation system to meet the needs of the community into the future,
including accommodating economic growth. The amendment is consistent with this goal.
Statewide Planning Goal 10: Housing
To provide adequate housing for the needs of the community, region and state.
Findine: The City is currently in compliance with Goal 10. The adoption of the Springfield 2035
Transportation System does not alterthe City's compliance with Goal 10. This Metro Plan amendment
seeks to provide a multi -modal transportation system to meet the needs of the community into the
future, including accommodating its housing needs. This proposed Metro Plan amendment is consistent
with Goal 10.
Statewide Planning 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.
Findine: The City is currently in compliance with Goal 11 through its acknowledged Comprehensive Plan.
This includes an adopted Transportation System Plan, TronsPlan. This amendment will update the
transportation element of the Metro Plan by replacing TronsPlan as the locally adopted TSP. As a result,
this amendment to the Metro Plan is in compliance with Goal 11.
Statewide Planning Goal 12: Transportation
To provide and encourage a safe, convenient, and economic transportation system.
Finding: The City is currently in compliance with Goal 12 and the Central Lane Regional Transportation
Plan (RTP) through its acknowledged Comprehensive Plan (i.e. Metro Plan) and the Central Lane
Regional Transportation System Plan as required by Oregon Administrative Rule 660 -012
(Transportation Planning Rule). The amendment adopts the Springfield 2035 Transportation System
Plan, which was completed following the rules outlined in the Transportation Planning Rule. As a result,
the adoption of this Metro Plan amendment to include the Springfield 2035 Transportation System Plan
is in compliance with Goal 12. The table below provides specific findings discussing compliance with
individual sections of the TPR.
TPRfRequirements
Springfield TSP Compliance
660 - 012 -0015 Preparation and Coordination of TSPs
(3) Cities and counties shall prepare, adopt and
amend local TSPs for lands within their
planning jurisdiction in compliance with this
division:
EXHIBIT A, Page 9 of 48
TPR Requirements.
Springfield TSP Compliance
(a) Local TSPs shall establish a system of
The Transportation planning toolbox (Chapter 4)
transportation facilities and services
and the Transportation Plan (Chapter 5) include
adequate to meet identified local
facilities and services to meet identified
transportation needs and shall be
transportation needs. Needs are identified in
consistent with regional TSPs and adopted
Volume 3 Appendix C, No Build Analyses and
elements of the state TSP;
Volume 3 Appendix D, 20 -year Needs Analysis.
The TSP was developed in collaboration with
ODOT to ensure consistency with the Oregon
Highway Plan, with Lane County to ensure
consistency with the County TSP, and with LCOG
to ensure consistency with TransPlan. As noted
above, despite the difference in horizon years,
the total population and total employment used
in the identification of needs of TransPlan and
Springfield's TSP are consistent, therefore the
outcome forecasts of these efforts are
consistent. Other findings of specific consistency
with TransPlan (the Transportation Element of
the Metro Plan which serves as the Regional TSP)
are noted later in this report.
(5) The preparation of TSPs shall be coordinated
The TSP Stakeholder Advisory Committee (SAC)
with affected state and federal agencies, local
and Technical Advisory Committee (TAC) included a
governments, special districts, and private
wide range of stakeholders and representatives
providers of transportation services.
from City of Springfield, ODOT, LCOG, LTD,
Willamalane Park and Recreation District,
Springfield Utility Board, University of Oregon, City
of Eugene, and Lane County.
(6) Mass transit, transportation, airport and port
The TSP TAC included representatives from Lane
districts shall participate in the development
Transit District (LTD).
of TSPs for those transportation facilities and
services they provide. These districts shall
prepare and adopt plans for transportation
facilities and services they provide. Such plans
shall be consistent with and adequate to carry
out relevant portions of applicable regional
and local TSPs. Cooperative agreements
executed under ORS 197.185(2) shall include
the requirement that mass transit,
transportation, airport and port districts adopt
a plan consistent with the requirements of this
section.
660 - 012 -0016 Coordination with Federally- Required Regional Transportation Plans in Metropolitan
Areas
EXHIBIT A, Page 10 of 48
TPR Requirements
Springfield TSP. Compliance.
(1) In metropolitan areas, local governments shall
The City of Springfield has been a part of LCOG's
prepare, adopt, amend and update
Regional Transportation Plan (RTP) Process. The
transportation system plans required by this
RTP is done, and will be updated when Springfield,
division in coordination with regional
Eugene, and Coburg adopt their City TSPs
transportation plans (RTPs) prepared by MPOs
required by federal law. Insofar as possible,
regional transportation system plans for
metropolitan areas shall be accomplished
through a single coordinated process that
complies with the applicable requirements of
federal law and this division. Nothing in this
rule is intended to make adoption or
amendment of a regional transportation plan
by a metropolitan planning organization a land
use decision under Oregon law.
660 - 012 -0020 Elements of TSPs
(2) The TSP Shall include the following elements
Transportation needs are included in Appendix C,
(a) A determination of transportation needs
No Build Analysis and Appendix D, 20 -year Needs
as provided in OAR 660 - 012 -0030
Analyses.
EXHIBIT A, Page 11 of 48
TPR Requirements
Springfield TSP Compliance
(b) A road plan for a system of arterials and
Chapter 5 of the TSP outlines the functional
collectors and standards for the layout of
classification system. This classification identifies all
local streets and other important non-
arterials, collectors and local roadways to meet year
collector street connections. Functional
2035 needs. The classification system in the TSP
classifications of roads in regional and
maintains the existing classifications of the state
local TSP's shall be consistent with
and regional facilities within the City. No changes to
functional classifications of roads in state
the classifications included in the Oregon Highway
and regional TSPs and shall provide for
Plan, Lane County TSP, norTransPlan are needed to
continuity between adjacent jurisdictions.
adopt the functional classification plan in
The standards for the layout of local
Springfield's TSP. Chapter 5 also includes access
streets shall provide for safe and
management and connectivity guidelines. These
convenient bike and pedestrian circulation
guidelines are consistent with OHP and Lane County
necessary to carry out OAR 660 -012-
standards, as documented in Chapter 5. Further, th
0045(3)(b). New connections to arterials
only new roadways proposed that connect to state
and state highways shall be consistent
facilities occur along Franklin Boulevard within the
with designated access management
Glenwood Mixed Use neighborhood. The design of
categories. The intent of this requirement
the roadways within this corridor is currently the
is to provide guidance on the spacing of
subject of a NEPA process that is being conducted
future extensions and connections along
with ODOT and FHWA. This ensures consistency
existing and future streets which are
with state and federal guidelines Additionally, a
needed to provide reasonably direct
jurisdictional transfer is in the final stages of
routes for bicycle and pedestrian travel.
completion for Franklin Blvd, after which time ODO
will transfer jurisdiction to the City of Springfield. As
The standards for the layout of local streets
noted in Springfield Development Code (SDC)
shall address:
section 4.2 -105 et seq, the City also currently meets
(b) by requiring bicycle and pedestrian facilities on
(A) Extensions of existing streets
new collectors and arterials. Roadway standards will
be updated subsequent to the TSP update. The
(B) Connections to existing planned
intent of the new street standard update is to
streets, including arterialis s and
reanalyze needs of all travel modes and provide
collectors; and
greater design flexibility when constructing streets.
Arterial and collector standards will continue to
include space for sidewalks and bicycle lanes. The
(C) Connections to neighborhood
standards for the layout of local streets address
destinations.
extensions of existing streets, connections to
existing or planned streets, or connections to
neighborhood destinations planned within the 20-
year TSP timeline.
Current local access management guidelines for
Springfield are provided in SDC 4.2 -120. These
standards define how access to local streets needs
to occur, including providing specific spacing
requirements between driveways and
intersections. Section 4.2 -105 provides direction
for placement of public streets and relates back to
overall planning in the local TSP. These guidelines,
as currently written, meet requirements set forth
in (b).
EXHIBIT A, Page 12 of 48
TPR Requirements
Springfield ?SP Compliance
(c) A public transportation plan which:
Multimodal improvement projects in Chapter 5
include planned transit lines and stops. Volume 3,
(A) Describes public transportation
Appendix B, Existing conditions inventory and
services for the transportation
analyses describes existing transit routes, stops,
disadvantaged and identifies service
frequency, and park- and -ride locations.
inadequacies;
(B) Describes intercity bus and passenger
rail service and identifies the location
of terminals;
(C) For areas within an urban growth
boundary which have public transit
service, identifies existing and planned
transit trunk routes, exclusive transit
ways, terminals and major transfer
stations, major transit stops, and park -
and -ride stations. Designation of stop
or station locations may allow for
minor adjustments in the location of
stops to provide for efficient transit or
traffic operation or to provide
convenient pedestrian access to
adjacent or nearby uses.
(d) A bicycle and pedestrian plan for a
Chapter 4 transportation planning toolbox includes
network of bicycle and pedestrian routes
a toolbox for enhancing and increasing non -auto
throughout the planning area. The
travel modes for bicycle and pedestrian route
network and list of facility improvements
networks. Chapter 5 includes multi -modal
shall be consistent with the requirements
improvement projects with projects to enhance
of ORS 366.514;
the bicycle and pedestrian network routes in the
City.
(e) An air, rail, water and pipeline
Chapter 5 of the TSP includes rail, air, pipeline, and
transportation plan which identifies where
surface water transportation plans. Volume 3,
public use airports, mainline and
Appendix B, Existing Conditions Inventory and
branchline railroads and railroad facilities,
Analysis includes the location of air, rail, water,
port facilities, and major regional pipelines
and pipeline existing conditions which identifies
and terminals are located or planned
where major facilities are located within the City.
within the planning area. For airports, the
planning area shall include all areas within
airport imaginary surfaces and other areas
covered by state or federal regulations;
EXHIBIT A, Page 13 of 48
TPR Requirements
Springfield TSP Compliance
(f) For areas within an urban area containing
Chapter 4 Transportation Planning Toolbox
a population greater than 25,000 persons
includes Transportation System Management and
a plan for transportation system
Demand Management sections. Springfield TSP
management and demand management;
Goal 2 and supporting policies in Chapter 2 also
address transportation system management and
demand management. The existing SDC provides
direction on Transportation System Management
and TDM. For example, SDC 4.2 -155 addresses
Pedestrian Trails in Springfield. The City of
Springfield currently meets (f) through SDC 4.2-
100 et seq. as well as standards set forth in the
City's Engineering Design Standards and
Procedures Manual.
(g) A parking plan in MPO areas as provided in
TSP chapter 2, Goals and Policies, includes Policy
OAR 660 - 012- 0045(5)(c)
2.6 and a supporting action item. Additional
guidance for parking requirements and future
parking requirement updates in Springfield are
located in Chapter 5 (Transportation Plan) of the
Springfield TSP. Springfield currently implements
parking requirements through parking regulations
in SDC 4.6 -100 et seq.
(h) Policies and land use regulations for
The TSP Implementation and Policy language
implementing the TSP as provided in OAR
section includes policies, action items and a
660 - 012 -0045;
Development Code change outline to implement
the TSP. TSP volume 2 includes the full text of the
implementing ordinances, as well as SDC citations
which will be evaluated for updating after the TSP
is adopted. While the existing SDC meets TPR
standards, a full update will implement the
updated policies found in Chapter 2 of the TSP.
This SDC update process will include stakeholder
and public outreach, and will likely take place
immediately after adoption of this TSP. The
existing SDC links requirements to the local TSP,
such as in 4.2 -105 (A), where it directs street
alignments to those planned in the local TSP.
(i) For areas within an urban growth
Chapter 6, Funding and Implementation includes
boundary containing a population greater
the estimated revenue stream and a comparison
than 2,500 persons, a transportation
of the cost of the 20 year needs, along with
financing program as provided in OAR 660-
potential funding sources.
012 -0040.
EXHIBIT A, Page 14 of 48
TOR Requirements
Springfield TSP Compliance
(a) An inventory and general assessment of
Volume 3, Appendices B and C include an
existing and committed transportation
inventory and general assessment of existing and
facilities and services by function, type,
committed transportation facilities and services by
capacity and condition:
function, type, capacity, and condition.
(A) The transportation capacity analysis shall
include information on:
(i) The capacities of existing and committed
facilities;
(ii) The degree to which those capacities have
been reached or surpassed on existing
facilities; and
(iii) The assumptions upon which these
capacities are based.
(B) for state and regional facilities, the
transportation capacity analysis shall be
consistent with standards of facility
performance considered acceptable by the
affected state or regional transportation
agency;
(C) The transportation facility condition
analysis shall describe the general physical
and operational condition of each
transportation facility (e.g., very good,
good, fair, poor, very poor).
(3) (b) A system of planned transportation
Chapter 5, the transportation plan includes a
facilities, services and major improvements.
system of planned transportation facilities,
The system shall include a description of the
services, and major improvements.
type or functional classification of planned
facilities and services and their planned
capacities and performance standards;
660 - 012 -0025 Complying with the Goals in Preparing TSPs
Except as provided in section (3) of this rule,
In process; to be completed in the adoption
adoption of a TSP shall constitute the land use
process by the City
decision regarding the need for transportation
facilities, services and major improvements
and their function, mode, and general
location.
EXHIBIT A, Page 15 of 48
TPi2 Requirements
Springfield TSP Compliance
(2) Findings of compliance with applicable
Specific findings are contained in this Staff Report
statewide planning goals and acknowledged
to be adopted subject to City Council and Lane
comprehensive plan policies and land use
County Board approval.
regulations shall be developed in conjunction
with the adoption of the TSP.
660 - 012 -0030 Determination of Transportation Needs
(1) The TSP shall identify transportation needs
Volume 3, Appendices B and C, Existing Conditions
relevant to the planning area and the scale of
Inventory and Analyses and the No Build Analyses
the transportation network being planned
include a determination of transportation needs in
including:
the planning area including state, regional, and
local transportation needs. Additionally, the needs
(a) State, regional, and local transportation
of transportation disadvantaged and goods
needs;
movement to support industrial and commercial
development are considered.
(b) Needs of the transportation
Reference: Policy 1.4 and demographic analysis in
disadvantaged;
Existing conditions report
(c) Needs for movement of goods and
services to support industrial and
commercial development planned for
pursuant to OAR 660 -009 and Goal 9
(Economic Development).
(3) Within urban growth boundaries, the
Volume 3, Appendix D, 20 -year Needs Analyses
determination of local and regional
includes population and employment forecasts
transportation needs shall be based upon:
that are consistent with the Comprehensive Plan
and with a 20 year analysis.
(a) Population and employment forecasts and
The Springfield TSP includes bicycle, pedestrian,
distributions that are consistent with the
transit, and multi -use path policies and projects
acknowledged comprehensive plan,
that will help reduce reliance on the automobile.
including those policies that implement
Springfield currently meets these requirements
Goal 14: Forecasts and distributions shall
through standards found in SDC 4.2 -100 et seq. For
be for 20 years and, if desired, for longer
example, SDC section 4.2 -105 (A)(1)(a)(ii) states,
periods; and
the layout of streets shall not create excessive
travel lengths, particularly for pedestrians and
(b) Measures adopted pursuant to OAR 660-
cyclists. Another example is SDC 4.2 -160 (A)
012 -0045 to encourage reduced reliance
"Accessways allow pedestrians and bicyclists
on the automobile.
convenient linkages to adjacent streets, residential
areas, neighborhood activity centers. Accessways
shall be dedicated as public right -of -way during
the development review process." Additional
requirements may be added to the SDC afterthe
Springfield TSP is adopted.
EXHIBIT A, Page 16 of 48
TPR Requirements
Springfield TSP Compliance
(3) In MPO areas, calculation of local and
The TSP policies in Chapter 2, the transportation
regional transportation needs also shall be
planning toolbox and the recommended projects in
based upon accomplishment of the
Chapter 5 are all based on the premise of reducing
requirement in OAR 660 - 012 - 0035(4) to
reliance on the automobile in the future. The
reduce reliance on the automobile.
majority of the recommended projects are either
transit, new off - street pedestrian and bicycle
facilities, and /or upgrades to existing streets to add
pedestrian and bicycle features. There are very few
projects aimed solely at facilitating motor vehicle
mobility. Further, the city is exploring alternative
mobility standards at key locations to reduce the
need for and impact of roadway improvement
projects on state facilities.
In addition, the land use allocation of jobs and
households that serves as the basis for the LCOG
travel demand model focusses the majority of the
growth in key redevelopment opportunity areas
within the City, such as the Glenwood Riverfront
Area, Downtown, Gateway, and Jasper - Natron.
Noted in TransPlan as nodal areas, these areas are
intended as mixed use, high density environments
that will require a robust pedestrian, bicycle and
transit infrastructure.
Once the Envision Eugene strategies, Eugene's
multimodal projects and LTD's final transit network
are included in the LCOG travel demand model,
both cities and the region can evaluate key
performance statistics, such as VMT per capita and
mode split to determine if these new analyses and
project mixes meet the TPR VMT reduction
requirements and, if not, affirm existing
performance standards or establish appropriate
new performance standards that allow the cities
and the region to monitor progress toward this TPR
criteria through the planning horizon.
660 - 012 -0035 Evaluation and Selection of Transportation System Alternatives
(1) The TSP shall be based upon evaluation of
Volume 3, Appendix E, Alternatives Evaluation
potential impacts of system alternatives that
Process includes consideration and evaluation of
can reasonably be expected to meet the
potential impacts of system alternatives.
identified transportation needs in a safe
manner and at a reasonable cost with
available technology. The following shall be
evaluated as components of system
alternatives:
(a) Improvements to existing facilities or services;
Improvements to existing facilities and
services were considered before new facilities,
and are high priorities in this TSP for all modal
elements.
EXHIBIT A, Page 17 of 48
(b)
New facilities and services, including different
All new facilities were evaluated based on
modes or combinations of modes that could
their ability to include all modes or
reasonably meet identified transportation
combinations of travel modes to meet
needs;
identified transportation needs.
(c)
Transportation system management
Chapter 4 Transportation Planning Toolbox
measures;
includes Transportation System Management
measures
(d)
Demand management measures
Chapter 4 Transportation Planning Toolbox
includes Transportation Demand Management
measures
(e)
A no -build system alternative required by the
Volume 3, Appendix C, No Build Analyses
National Environmental Policy Act of 1969 or
documents the "no- build" system alternative.
other laws.
(3)
The following standards shall be used to
evaluate and select alternatives:
EXHIBIT A, Page 18 of 48
TPR Requirements
Springfield TSP Compliance
(a) The transportation system shall support urban
Volume 3, Appendices C No Build Analyses and
and rural development by providing types and
D, 20 -year needs analyses document the
levels of transportation facilities and services
anticipated land uses and the TSP projects
appropriate to serve the land uses identified in
include consideration of these land uses in
the acknowledged comprehensive plan;
determining an appropriate transportation
system.
(b) The transportation system shall be consistent
The TSP system and network of improvements
with state and federal standards for protection
includes consideration of environmental and
of air, land and water quality including the
ecological impacts, such as nearby wetlands,
State Implementation Plan under the Federal
which informed facility type and alignment
Clean Air Act and the State Water Quality
decisions. The TSP includes projects and
Management Plan;
policies to support modes other than the
single- occupancy vehicle to help reduce
transportation related air - quality impacts.
(c) The transportation system shall minimize
The TSP system and network of improvements
adverse economic, social, environmental and
includes consideration of minimizing
energy consequences;
economic, social, environmental, and energy
consequences.
(d) The transportation system shall minimize
The multimodal projects include an evaluation
conflicts and facilitate connections between
of projects for ability to minimize conflicts and
modes of transportation; and
facilitate connections between transportation
modes.
(e) The transportation system shall avoid principal
The transit, bicycle, pedestrian multi -modal
reliance on any one mode of transportation by
project ideas increase transportation choices
increasing transportation choices to reduce
to reduce reliance on the automobile.
principal reliance on the automobile.
(4) In MPO areas, regional and local TSPs
designed to achieve adopted standards for
increasing transportation choices and reducing
reliance on the automobile. Adopted
standards are intended as means of measuring
progress of metropolitan areas towards
developing and implementing transportation
systems and land use plans that increase
transportation choices and reduce reliance on
the automobile. It is anticipated that
metropolitan areas will accomplish reduced
reliance by changing land use patterns and
transportation systems so that walking,
cycling, and use of transit are highly
convenient and so that, on balance, people
need to and are likely to drive less than they
do today.
EXHIBIT A, Page 19 of 48
As previously noted in this report, the 2002
TransPlan will still serve as the Regional
Transportation System Plan (RTSP) for Eugene and
Springfield until the new RTSP is adopted. An
updated RTSP is being worked on through a
regional process as outlined in a work plan agreed
to with the Land Conservation and Development
Commission.- This regional process will enable the
full effect of pringfield's policies and priorities,
the City of Eugene's Envision Eugene strategies
and multimodal projects and LTD's final transit
network to be appropriately represented within
the LCOG travel demand model. At that time, both
cities and the region can establish and evaluate
key performance statistics to replace and /or
supplement those included in TransPlan that allow
the cities and the region to monitor overtime
progress toward this TPR criteriaTurther, as noted
previously although the horizon years for
Springfield's TSP and the RTP are different than
that of TransPlan, the total population and
employment estimates, upon which the
recommended multimodal projects and policies in
the TSP are based, are consistent. Detailed
information received from LCOG provides the
following information:
• The 2002 TransPlan modeled year 2020
total Population estimates for the Metro
Area as 325,400; year 2025 total
population was forecast as 351,263. The
Springfield TSP is based on a total
population for the Metro Area of 316,452
people, less than that of TransPlan.
• The 2002 TransPlan modeled year 2020
covered employment of 164,100 jobs; year
2025 forecasts reflect 176,004 jobs. The
Springfield TSP accounts for only 164,110
in the region.
Based on these population and employment
forecast comparisons, it can be concluded that the
travel demand forecasts associated with the
needs, projects, and policies identified in the 2035
Springfield TSP are less than the 2025 TransPlan
travel demand forecasts. As a result, from an
operational forecast standpoint, the 2035
Springfield TSP is consistent with TransPlan and
can serve as the benchmark for meetingthis
criterion until such a time that the ongoing
regional process is complete.
EXHIBIT A, Page 20 of 48
TPR Requirements
Springfield TSP Compliance
(7)
Regional and local TSPs shall include
As previously noted in this report, TransPlan will
benchmarks to assure satisfactory progress
still serve as the Regional Transportation System
towards meeting the approved standard or
Plan (RTSP) for Eugene and Springfield until the
standards adopted pursuant to this rule at
new RTSP is adopted. Further as discussed in 660 -
regular intervals over the planning period.
012 - 0035(4), the needs, projects, and policies
MPOs and local governments shall evaluate
identified in the Springfield TSP are consistent with
progress in meeting benchmarks at each
TransPlan population and employment projections
update of the regional transportation plan.
and therefore the TSP is consistent with TransPlan.
Where benchmarks are not met, the relevant
Thus, TransPlan can serve as the benchmark for
TSP shall be amended to include new or
meeting this criterion until such a time that the
additional efforts adequate to meet the
ongoing regional process is complete.- Until the
requirements of this rule.
new RTSP is adopted, Springfield is still held to the
adopted performance standards in TransPlan
(acting as the RTSP) and nothing in the 2035
Springfield TSP will inhibit or discourage continued
achievement of the 2002 TransPlan performance
objectives.
660 - 012 -0040 Transportation Financing Program
(1)
For areas within an urban growth boundary
Chapter 6 Funding and Implementation identifies
containing a population greaterthan 2,500
funding for transportation projects. Full
persons, the TSP shall include a transportation
documentation of the financing plan is included in
financing program.
Volume 2, Detailed Cost Estimates and Funding
Analyses.
(2)
A transportation financing program shall
include the items listed in (a) -(d):
(a)
A list of planned transportation facilities and
Chapter 5 includes a list of planned
major improvements;
transportation facilities and major
improvements in the multimodal
improvement projects section
(b)
A general estimate of the timing for planned
Chapter 5 organizes the multimodal
transportation facilities and major
improvements into general time frames
improvements;
(c)
A determination of rough cost estimates for
Chapter 6 Funding and Implementation
the transportation facilities and major
includes planning level cost estimates for the
improvements identified in the TSP; and
20 -year needs. Full documentation of the cost
estimates is included in Appendix, Detailed
Cost Estimates and Funding Analyses.
EXHIBIT A, Page 21 of 48
TPR Requirements
Springfield TSP Compliance
(d) In metropolitan areas, policies to guide
As previously noted in this report, TransPlan
selection of transportation facility and
will still serve as the Regional Transportation
improvement projects for funding in the short-
System Plan (RTSP) for Eugene and Springfield
term to meet the standards and benchmarks
until the new RTSP is adopted.
established pursuant to 0035(4) -(6). Such
Per the findings in 660 - 012 - 0035(4) and (7), the
policies shall consider, and shall include among
needs, projects, and policies identified in the
the priorities, facilities and improvements that
Springfield TSP are consistent with TransPlan
support mixed -use, pedestrian friendly
population and employment projections and
development and increased use of alternative
therefore the TSP is consistent with TransPlan.
modes.
Thus, TransPlan can serve as the benchmark for
meeting this criterion until such a time that the
ongoing regional process is complete. Until the
new RTSP is adopted, Springfield is still held to
the adopted performance standards in
TransPlan (acting as the RTSP). Further, the TSP
policies in Chapter 2, the transportation
planning toolbox and the recommended
projects in Chapter 5 are all based on the
premise of reducing reliance on the automobile
in the future in support of this criteria. The
majority of the recommended projects are
either transit, new off - street pedestrian and
bicycle facilities, and /or upgrades to existing
streets to add pedestrian and bicycle features.
There are very few projects aimed solely at
facilitating motor vehicle mobility. Further, the
city is exploring alternative mobility measures
at key locations to reduce the need for and
impact of roadway improvement projects on
state facilities.
(3) The determination of rough cost estimates is
Chapter 6, Funding and Implementation includes
intended to provide an estimate of the fiscal
the 20 -year estimated revenue stream, along with
requirements to support the land uses in the
potential funding sources. More detailed
acknowledged comprehensive plan and allow
information is in Volume 2, Appendix II, Detailed
jurisdictions to assess the adequacy of existing
Cost Estimates and Funding Analyses.
and possible alternative funding mechanisms.
In addition to including rough cost estimates
for each transportation facility and major
improvement, the transportation financing
plan shall include a discussion of the facility
provider's existing funding mechanisms and
the ability of these and possible new
mechanisms to fund the development of each
transportation facility and major
improvement. These funding mechanisms may
also be described in terms of general
guidelines or local policies.
(5) The transportation financing program shall
provide for phasing of major improvements to
encourage infill and redevelopment of urban
lands prior to facilities and improvements
which would cause premature development of
urbanizable lands or conversion of rural lands
to urban uses.
EXHIBIT A, Page 22 of 48
Volume II, Appendix E, of the TSP includes a
detailed description of the evaluation criteria used
to select future transportation projects in
Springfield. The Projects in the TSP include the
ability to phase.
EXHIBIT A, Page 23 of 48
Statewide Planning Goal 13: Energy Conservation
Land and uses developed on the land shall be managed and controlled so as to maximize the
conservation of all forms of energy, based on sound economic principles.
Findings: The City is currently in compliance with Goal 13 through its acknowledged Comprehensive
Plan. The adoption of the City of Springfield 2035 Transportation System Plan does not alter the City's
compliance with Goal 13. The TSP provides direction for the City regarding transportation
improvements, including strategies to reduce vehicle miles traveled and single occupancy vehicle trips.
Included is direction to plan, fund, and develop a multi -modal transportation system that meets the
needs of the community and region. The City of Springfield 2035 Transportation System Plan includes
facility improvements, both on- street and off - street, intended to provide improved connectivity for
pedestrians and bicyclists. The facilities would provide improved access to a variety of destinations
within the planning area. The Springfield 2035 Transportation System Plan also includes policy direction
and facility improvements intended to provide improved high frequency public transit efficiency and
connectivity. All of these improvements and strategies are intended to reduce energy consumption
associated with the transportation system. The amendment is consistent with this goal.
Statewide Planning Goal 14: Urbanization
To provide for an orderly and efficient transition from rural to urban land use, to accommodate urban
population and urban employment inside urban growth boundaries, to ensure efficient use of land, and
to provide for livable communities.
Findings: The City is currently in compliance with Goal 14. While the City is currently in the midst of
creating a 2030 Plan (comprehensive plan) which may include future UGB expansion areas, this TSP
update is for the existing Springfield UGB and does not address any future UGB expansion areas that
may occur. If expansion areas are eventually approved, the Springfield 2035 Plan will need to be
updated to include those areas. The City also has a signed Urban Planning Area Agreement and Urban
Services Agreement as required by ORS 195.065 and ORS 197. The adoption of the Springfield 2035
Transportation System Plan does not alter the City's compliance with Goal 14. The amendment updates
the transportation section of the Metro Plan through incorporating the Springfield 2035 Transportation
System Plan. The Springfield 2035 Transportation System Plan ensures compliance with Oregon
Administrative Rule 660 -012, which governs transportation system development in the state and
requires conformance with the Regional Transportation Plan. The amendment is consistent with this
goal.
Statewide Planning Goal 15: Willamette River Greenway
To protect, conserve, enhance and maintain the natural, scenic, historical, agricultural, economic and
recreational qualities of lands along the Willamette River as the Willamette River Greenway.
Findings: Nearly all of projects in the Springfield 2035 Transportation System Plan are located outside of
the Willamette River Greenway area. Individual transportation projects which are located in the
Willamette River Greenway, such as the Glenwood Riverfront Path project, are required to conduct an
individual analysis of Goal 15 compliance during the project development phase of work. This proposed
amendment is consistent with this goal.
EXHIBIT A, Page 24 of 48
Statewide Planning Goals 16 -19: Estuarine Resources, Coastal Shorelands, Beaches and Dunes and
Ocean Resources.
Finding: These statewide planning goals relate to coastal lands in Oregon and are not applicable to this
proposed amendment.
CONCLUSION: Based on the analysis above, the proposed amendment is
consistent with the applicable Statewide Planning Goals.
CRITERION 712: Adoption of the amendment shall not make the Metro Plan internally inconsistent
Finding: Chapter III of the Metro Plan contains eleven specific elements that address a comprehensive
list of topics, including (A) Residential Land Use and Housing Element (B) Economic Element (C)
Environmental Resources Element (D) Willamette River Greenway, River Corridors, and Waterways
Element (E) Environmental Design Element (F) Transportation Element (G) Public Facilities and Services
Element, and (H) Parks and Recreation Facilities Element. Findings for relevant policies from each
element are contained in this report. Applicable Metro Plan policies are italicized.
Finding:
A. Metro Plan Residential Land Use and Housing Element
On June 20th 2011, the City of Springfield Council adopted Ordinance 6268 amending the Eugene -
Springfield Metropolitan Area General Plan (Metro Plan) to adopt the Springfield 2030 Refinement Plan
Residential Land Use and Housing Element and the Springfield Residential Land and Housing Needs
Analysis. This Residential Land Use and Housing Element and Residential Land and Housing Needs
Analysis contains the following relevant housing policies related to the Springfield 2035 Springfield TSP:
H.3, H.5, H.10, H.13
H.3 — Support community -wide, district -wide and neighborhood- specific livability and redevelopment
objectives and regional land use planning and transportation planning policies by locating higher density
residential development and increasing the density of development near employment or commercial
services, within transportation- efficient Mixed Use Nodal Development centers and along corridors
served byfrequent transit service.
H.5 Develop additional incentives to encourage and facilitate development of high density housing in
areas designated for Mixed Use Nodal Development. -
H.10 Through the updating of development of each neighborhood refinement plan, district plans or
specific area plan, amend land use plans to increase development opportunities for quality affordable
housing in locations served by existing and planned frequent transit service that provides access to
employment centers, shopping, health care, civic, recreational and cultural services.
H.13 Promote housing development and affordability in coordination with transit plans and in proximity
to transit stations.
EXHIBIT A, Page 25 of 48
In addition to the above stated Metro Plan housing policies, the Springfield 2030 Refinement Plan
Residential Land Use and Housing Element and the Springfield Residential Land and Housing Needs
Analysis contains land use efficiency measures which were considered and incorporated early and often
into the buildable lands analyses. Some examples of these efficiency measures include, but are not
limited to:
• Encourage more infill and redevelopment
• Encourage more development of urban centers and urban villages (Nodal Development)
• Allow more mixed -use development
Encourage more transit - oriented design
• Continue efforts to revitalize Downtown
The Springfield 2035 TSP contains multiple goals and polices which support the above stated housing
policies and land use efficiency measures. These TSP policies include, but are not limited to:
Goal 1: Community Development — Provide an efficient, sustainable, diverse, and
environmentally sound transportation system that supports and enhances Springfield's
economy and land use patterns.
Policy 1.3: Provide a multi -modal transportation system that supports mixed -use areas, major
employment centers, recreation, commercial, residential, and public developments, to reduce
reliance on single- occupancy vehicles (SOVs).
• Policy 2.3: Expand existing Transportation Demand Management (TDM) programs related to
carpooling, alternate work schedules, walking, bicycling, and transit use in order to reduce peak
hour congestion and reliance on SOVs.
• Policy 2.5: Coordinate with Lane Transit District (LTD) to increase the transit system's
accessibility and convenience for all users, including the transportation- disadvantaged
population. (NOTE Action 2: Monitor and adjust bus stop locations as needed to support
surrounding land uses and provide more efficient and safe service).
• Goal 3: System Design: Enhance and expand Springfield's transportation system design to
provide a complete range of transportation mode choices.
• Policy 3.2: Expand and enhance Springfield's bikeway system and provide bicycle system support
facilities to both new development and redevelopment / expansion.
Policy 3.3: Street design standards should be flexible and allow appropriate -sized local, collector,
and arterial streets based upon traffic flow, geography, efficient land use, social, economic, and
environmental impacts.
• Policy 3.7: Provide for a pedestrian environment that supports adjacent land uses and is
designed to enhance the safety, comfort, and convenience of walking by providing direct routes
and removing barriers when possible.
EXHIBIT A, Page 26 of 48
• Policy 3.8: Coordinate the design of Springfield's transportation system with relevant local,
regional, and state agencies. (NOTE Action #3 — Partner with LTD to provide frequent transit
network connections along major corridors. Frequent transit network should connect to local
neighborhood bus service and major activity center to provide viable alternatives to vehicle
trips).
The above stated TSP goals and policies are examples of consistency between the Springfield 2035 TSP
and relevant Metro Plan policies. The proposed amendment will further support and enhance the Metro
Plan's Residential Land Use and Housing Element through strengthening multi -modal connections,
enhancing bike, pedestrian and transit facilities and target multi -modal infrastructure in higher density,
mixed use areas throughout Springfield. The proposed amendment is consistent with this Metro Plan
Element.
Finding:
B. Metro Plan Economic Element
The Economic Element of the Metro Plan addresses the economic needs of current and future residents
of the metropolitan area. The overarching economic goal of the Metro Plan Element is to, "Broaden,
improve, and diversify the metropolitan economy while maintaining or enhancing the environment"
The Economic Element of the Metro Plan contains the following relevant economic policies related to
the Springfield 2035 Springfield TSP: B.17, B.18 and B.19.
8.17 Improve land availability for industries dependent on rail access
8.18 Encourage the development of transportation facilities which would improve access to industrial
and commercial areas and improve freight movement capabilities by implementing the policies and
projects in the Eugene - Springfield Metropolitan Area Transportation Plan (TransPlan) and the Eugene
Airport Master Plan.
8.19 Local jurisdictions will encourage the allocation of funds to improve transportation access to key
industrial sites or areas through capital budgets and priorities.
The Springfield 2035 TSP contains multiple goals and polices which support these economic policies.
These TSP policies include, but are not limited to:
• Goal 1: Community Development — Provide an efficient, sustainable, diverse, and
environmentally sound transportation system that supports and enhances Springfield's
economy and land use patterns.
• Policy 1.1: Manage Springfield's street, bike, pedestrian, rail, and transit system to facilitate
economic growth of existing and future businesses in Springfield (NOTE Action #1— When
evaluating needed roadway improvements, consider the economic viability of existing
commercial and industrial areas).
• Policy 2.2: Manage traffic operation systems for efficient freight and goods movement along
designated freight, truck, and rail routes in Springfield (NOTE Action #2 — Coordinate with rail
EXHIBIT A, Page 27 of 48
providers to improve at -grade rail crossing treatments to improve traffic flow and manage
conflict points; create grade- separated rail crossings when possible).
• Policy 2.6: Manage the on- street parking system to preserve adequate capacity and turnover for
surrounding land uses.
• Policy 2.7 manage the off - street parking system to assure major activity centers meet their
parking demand through a combination of shared, leased, and new off - street parking facilities .
and TDM programs.
• Goal 3: System Design — Enhance and expand Springfield's transportation system design to
provide a complete range of transportation mode choices.
• Policy 3.2: Expand and enhance Springfield's bikeway system and provide bicycle system support
facilities to both new development and redevelopment / expansion.
• Policy 33: Street design standards should be flexible and allow appropriate -sized local, collector,
and arterial streets based upon traffic flow, geography, efficient land use, social, economic, and
environmental impacts.
• Policy 3.9: Support provision of rail - related infrastructure improvements as part of the Cascadia
High -Speed Rail Corridor project.
• Policy 4.1: Support development of a stable and flexible transportation finance system that
provides adequate resources for transportation needs identified in the Springfield 2035 TSP.
The above stated TSP goals and policies are examples of consistency between the Springfield 2035 TSP
and relevant Metro Plan economic policies. The proposed amendment will further support and enhance
the Metro Plan's Economic Element through strengthening freight mobility and further supporting
freight infrastructure. The TSP will also provide a greater range of transportation options for businesses
and employees. Other supporting policies listed above will enhance the on and off - street parking system
to promote economic development. The proposed amendment is consistent with this Metro Plan
Element.
It should be noted that the Springfield Council has provisionally adopted a Springfield specific Economic
Opportunity Analysis and a separate Commercial and Industrial Buildable Lands study. These
documents, when finally adopted will constitute a new Economic Element of the Springfield Specific
2030 Plan. Those documents confirm the continued viability of the Metro Plan Economic Element.
Finding:
C. Environmental Resources Element
The Environmental Resources Element addresses the natural assets and hazards in the metropolitan
area. The policies of this element emphasize reducing urban impacts on wetlands throughout the
metropolitan area and planning for the natural assets and constraints on undeveloped lands on the
urban fringe.
The Environmental Resources Element of the Metro Plan contains the following relevant policies related
to the Springfield 2035 Springfield TSP: C.8,'C.22, C.23 and C.24.
C.8 Local governments shall develop plans and programs which carefully manage development on
hillsides and in water bodies, and restrict development in wetlands in order to prevent erosion and
EXHIBIT A, Page 28 of 48
protect the scenic quality, surface water and groundwater quality, forest values, vegetation, and wildlife
values of those areas.
C.22 Design of new street, highway, and transit facilities shall consider noise mitigation measures where
appropriate.
C.23 Design and construction of new noise- sensitive development in the vicinity of existing and future
streets and highways with potential to exceed general highway noise levels shall include consideration of
mitigating measures, such as acoustical building modifications, noise barriers, and acoustical site
planning. The application of these mitigating measures must be balanced with other design
considerations and housing costs.
C.24 Local governments shall continue to monitor, to plan for, and to enforce applicable noise standards
and shall cooperate in meeting applicable federal and state noise standards.
The Springfield 2035 TSP contains goals and polices which support these economic policies. These
include, but are not limited to:
Goal 1: Community Development — Provide an efficient, sustainable, diverse, and
environmentally sound transportation system that supports and enhances Springfield's
economy and land use patterns.
Policy 1.2: Consider environmental impacts of the overall transportation system and strive to
mitigate negative effects and enhance positive features. (NOTE Action #1— Strive to reduce
vehicle - related greenhouse gas emissions and congestion through more sustainable street, bike,
pedestrian, transit, and rail network design, location, and management. Action #2 — Coordinate
the transportation network with new alternative energy infrastructure such as electric vehicle
charging stations, natural gas, and hydrogen cell fueling stations).
The above stated TSP goals and policies are examples of consistency between the Springfield 2035 TSP
and relevant Metro Plan environmental policies. The proposed amendment will further support and
enhance the Metro Plan's Environmental Resources Element through strengthening environmentally
sound transportation options and an overall more sustainable transportation system. The 2035 will
strive to reduce vehicle - related greenhouse gas emissions and look at alternative energy infrastructure.
The proposed amendment is consistent with this Metro Plan Element.
Finding:
D. Willamette River Greenway, River Corridors, and Waterways Element
The Willamette River Greenway, River Corridors, and Waterways Element address these specific natural
assets in the metropolitan area. The policies of this element emphasize reducing urban impacts on these
resources throughout the metropolitan area.
The Willamette River Greenway, River Corridors, and Waterways Element of the Metro Plan contain the
following relevant policies related to the Springfield 2035 Springfield TSP: D.2.
D.2 Land use regulations and acquisition programs along river corridors and waterways shall take into
account all the concerns and needs of the community, including recreation, resource, and wildlife
EXHIBIT A, Page 29 of 48
protection; enhancement of river corridor and waterway environments; potential for supporting non-
automobile transportation; opportunities for residential development, and other compatible uses.
D.3 Eugene, Springfield, and Lane County shall continue to cooperate in expanding water related parks
and other facilities, where appropriate, that allow access to and enjoyment of river and waterway
corridors.
D.9 Local and state governments shall continue to provide adequate public access to the Willamette
River Green way.
D.11 The taking of an exception shall be required if a non - water - dependent transportation facility
requires placing of fill within the Willamette River Greenway setback.
The Springfield 2035 TSP contains goals and polices which support these Willamette River Greenway,
River Corridors, and Waterways policies. These include, but are not limited to:
• Goal 1: Community Development— Provide an efficient, sustainable, diverse, and
environmentally sound transportation system that supports and enhances Springfield's
economy and land use patterns.
• Policy 1.2: Consider environmental impacts of the overall transportation system and strive to
mitigate negative effects and enhance positive features.
The above stated TSP goals and policies are examples of consistency between the Springfield 2035 TSP
and relevant Metro Plan Willamette River Greenway, River Corridors, and Waterways policies. The
proposed amendment will further support and enhance the Metro Plan's Willamette River Greenway,
River Corridors, and Waterways Element through by providing improved access to waterways by
implementing projects such as the planned Glenwood Riverfront Collector and the Glenwood Riverfront
Path (identified in Chapter 5 of the TSP). The proposed amendment is consistent with this Metro Plan
Element.
Finding:
E. Environmental Design Element
The Environmental Design Element is concerned with that broad process which molds the various
components of the urban area into a distinctive, livable form that promotes a high quality of life. This
Element is concerned with how people perceive and interact with their surroundings.
The Environmental Design Element of the Metro Plan contains the following relevant policies related to
the Springfield 2035 Springfield TSP: E.3 and E.4.
E.3 The planting of street trees shall be strongly encouraged, especially for all new developments and
redeveloping areas (where feasible) and new streets and reconstruction of major arterials within the
UGB.
EXHIBIT A, Page 30 of 48
E.4 Public and private facilities shall be designed and located in a manner that preserves and enhances
desirable features of local and neighborhood areas and promotes their sense of identity.
The Springfield 2035 TSP contains goals and polices which support these Environmental Design policies.
These include, but are not limited to:
• Goal 3: System Design — Enhance and expand Springfield's transportation system design to
provide a complete range of transportation mode choices.
• Policy 3.3: Street design standards should be flexible and allow appropriate -sized local, collector,
and arterial streets based upon traffic flow, geography, efficient land use, social, economic, and
environmental impacts.
• Policy 3.7: Provide for a pedestrian environment that supports adjacent land uses and is
designed to enhance the safety, comfort, and convenience of walking by providing direct routes
and removing barriers when possible.
The above stated TSP goals and policies are examples of consistency between the Springfield 2035 TSP
and relevant Environmental Design policies. The proposed amendment will further support and enhance
the Metro Plan's Environmental Design Element by providing greater flexibility in future street design.
The TSP will also enhance the pedestrian environment for new and redeveloped properties, creating a
more liveable community. The proposed amendment is consistent with this Metro Plan Element.
Finding:
F. Transportation Element
The Metro Plan Transportation Element addresses surface and air transportation in the metropolitan
area. The Eugene - Springfield Metropolitan Area Transportation Plan (TransPlan) provides the basis for
surface transportation. The goals and policies in the Metro Plan Transportation Element are identical to
those in TransPlan, as TransPlan serves as the functional plan for transportation issues in the Metro
Area. As previously noted in this report, this Springfield 2035 TSP will replace TransPlan (amended 2002)
as Springfield's local TSP. Until now, TransPlan has served as the adopted TSP for both Eugene and
Springfield. In 2006, House Bill 3337 passed requiring the two cities to develop separate UGBs. With
separate UGBs, the State of Oregon's Transportation Planning Rule (TPR) required that Springfield and
Eugene develop city- specific TSPs. The Springfield 2035 TSP is the City's first independent TSP. To that
extent it replaces TransPlan as the source of policy guidance on local transportation actions. As noted
earlier in this report, TransPlan will still remain as the RTSP for Springfield and other local jurisdictions
until the RTSP update is finalized. Local and regional jurisdictions in the Central Lane Metropolitan
Planning Organization (MPO) have been and are continuing to go through this RTSP process according to
the agreed to work plan developed between the MPO partner agencies and with LCDC. Once adopted,
the new Springfield 2035 TSP will guide local transportation decision making through its goals and
policies. As previously noted in this report, the Springfield TSP supports the TransPlan (RTSP) alternative
performance measures consistent with TransPlan acting as the City TSP, until such time as new
performance measures are adopted through the RTSP update process now underway.
Policies in the Metro Plan Transportation Element are organized by the following four topics related to
transportation: Land Use, Transportation Demand Management, Transportation System Improvements,
and Finance.
The Springfield 2035 TSP used the TransPlan goals, policies and objectives as a starting point for
updating the policy set in the new TSP. Similar to TransPlan, the structure of the Springfield 2035 TSP
EXHIBIT A, Page 31 of 48
includes four overarching categories. The TSP goals have subsequent policies and action items
categorized beneath them. The four goals found in the Springfield 2035 TSP are:
• Goal 1: Community Development — Provide an efficient, sustainable, divers and environmentally
sound transportation system that supports and enhances Springfield's economy and land use
patterns.
• Goal 2: System Management — Preserve, maintain, and enhance Springfield's transportation
system through safe, efficient, and cost - effective transportation system operations and
maintenance techniques for all modes.
• Goal 3: System Design — Enhance and expand Springfield's transportation system design to
provide a complete range of transportation mode choices.
• Goal 4: System Financing — Create and maintain a sustainable transportation funding plan that
provides implementable steps towards meeting Springfield's vision.
Because all of the Metro Plan Transportation Element goals and policies are relevant to this Springfield
2035 TSP, they are hereby incorporated into these findings by reference. However, some specific
TransPlan policies are highlighted in this Finding to illustrate consistency between TransPlan policies and
those of the Springfield 2035 TSP. These include F.4, F.B, F.11, F.14, F.18, F.22, F.26, and F.34.
• Metro Plan /TransPlan Land Use Policy F.4: Require improvements that encourage transit,
bicycles, and pedestrians in new commercial, public, mixed use, and multi -unit residential
development.
• Metro Plan /TransPlan TDM Policy F8: Implement TDM strategies to manage demand at
congested locations.
• Metro Plan /TransPlan Transportation System Improvement System Wide Policy F.11: Develop
or promote intermodal linkages for connectivity and ease of transfer among all transportation
modes.
• Metro Plan /TransPlan Transportation System Improvement, Roadway System F.14: Address the
mobility and safety needs of motorists, transit users, bicyclists, pedestrians, and the needs of
emergency vehicles when planning and constructing roadway system improvements.
• Metro Plan /TransPlan Transportation System Improvement, Transit System F. 18: Improve
transit service and facilities to increase the system's accessibility, attractiveness, and
convenience for all users, including the transportation disadvantaged population.
• Metro Plan /TransPlan Transportation System Improvement, Bicycle System F.22: Construct and
improve the region's bikeway system and provide bicycle system support facilities for both new
development and redevelopment /expansion.
• Metro Plan /TransPlan Transit System Improvement, Pedestrian System F.26: Provide for a
pedestrian environment that is well integrated with adjacent land uses and is designed to
enhance the safety, comfort and convenience of walking.
• Metro Plan /TransPlan Finance Policy F.34: Operate and maintain transportation facilities in a
way that reduces the need for more expensive future repair.
TransPlan policies were used as a starting point for creating the Springfield 2035 TSP. TransPlan policies
are arranged into 10 different policy categories, including: Land Use; TDM; TSI System -Wide; TSI
Roadway; TSI Transit; TSI Bicycle; TSI Pedestrian; TSI Goods Movement Policies; TSI Other Modes
Policies; and, Finance. The Springfield 2035 TSP planning process simplified these overall categories by
EXHIBIT A, Page 32 of 48
creating four overarching goals that cover all of these previous TransPlan policy categories. For example,
the connection between land use and transportation planning is noted in Policy 1.3 (see further
description below). The Springfield 2035 TSP expands upon the TransPlan policy set and provides more
specific local direction on creating a true multi -modal transportation system in Springfield.
The Springfield 2035 TSP contains multiple goals and polices which support these Metro Plan / TransPlan
policies. These TSP policies include, but are not limited to:
• Policy 1.3: Provide a multi -modal transportation system that supports mixed -use areas, major
employment centers, recreation, commercial, residential, and public developments, to reduce
reliance on single- occupancy vehicles (SOVs).
• Policy 2.3: Expand existing Transportation Demand Management (TDM) programs related to
carpooling, alternate work schedules, walking, bicycling, and transit use in order to reduce peak
hour congestion and reliance on SOVs.
• Policy 2.10: The City of Springfield values a safe and efficient travel experience for bicycle,
pedestrian, transit, freight and auto travel. It is the intent of the city to balance the needs of
these modes through creation of a multi -modal LOS methodology for all modes and to facilitate
and encourage intermodal connections where most appropriate. Multi -modal LOS generally is
reflective of the following:
• Transit —LOS is based on a combination of the access, waiting, and ride experience, as
well as travel time, frequency, safety, and reliability.
• Bicycle —LOS is a combination of the bicyclists' experiences at intersections and on street
segments in between the intersections. Safety is also a consideration.
• Pedestrian - LOS is based on a combination of pedestrian experience, density of land use
and other factors including efficiency, safety and pedestrian comfort level.
• Auto —LOS is based on a combination of travel time, delay, stops, safety and queues.
• Freight —LOS is based on a combination of travel time, delay, stops, safety and queues.
• Intermodal —LOS is based on an evaluation of the frequency and convenience of
connections between different travel modes.
• Policy 3.8: Coordinate the design of Springfield's transportation system with relevant local,
regional, and state agencies. (NOTE Action #3 — Partner with LTD to provide frequent transit
network connections along major corridors. Frequent transit network should connect to local
neighborhood bus service and major activity center to provide viable alternatives to vehicle
trips).
• Policy 4.1: Support development of a stable and flexible transportation finance system that
provides adequate resources for transportation needs identified in the Springfield 2035 TSP.
The above stated TSP goals and policies are examples of consistency between the Springfield 2035 TSP
and the Metro Plan / TransPlan Transportation Element policies. The proposed amendment will further
support multi -modal transportation and its nexus to mixed use development. The proposed
amendment is consistent with this Metro Plan Element.
EXHIBIT A, Page 33 of 48
Finding:
F. Public Facilities and Services Element
This element incorporates the findings and policies in the Eugene - Springfield Metropolitan Area Public
Facilities and Services Plan (Public Facilities and Services Plan), adopted as a refinement to the Metro
Plan. The Public Facilities and Services Plan provide guidance for public facilities and services, including
planned water, wastewater, stormwater, and electrical facilities. Transportation findings and policies are
not part of the Eugene - Springfield Metropolitan Area Public Facilities and Services Plan, but rather are
located in TransPlan. Relevant Metro Plan policies are discussed in the previous Transportation Element
section.
Finding:
H. Parks and Recreation Facilities Element
This Metro Plan Element addresses Parks and Recreation Facilities in the Metro Area. In Springfield,
Willamalane Park and Recreation District is responsible for parks and recreation facilities and planning.
There are no transportation specific Parks and Recreation Facilities Element policies in the Metro Plan
the directly relate to the 2035 Springfield Transportation System Plan. However, some TSP multiuse path
projects overlap with those in the recent update to the Willamalane Parks Comprehensive Plan, such as
the Weyerhaeuser Haul Road path. The planning for this and other similar projects has been closely
coordinated with Willamalane staff.
One example of consistency between this 2035 Springfield TSP and the Willamalane Park and Recreation
Comprehensive Plan is TSP Policy 2.4 and its supporting Action #1. They state:
Policy 2.4 - Maintain and preserve a safe and efficient bike and pedestrian system in Springfield.
Action #1— Coordinate with Willamalane Park and Recreation District to maintain and preserve
the off- street path system.
This Metro Plan amendment does not alter compliance with the Parks and Recreation Facilities Element
of the Metro Plan, and is consistent with this Metro Plan Element.
Finding:
1. Historic Preservation Element
This Element of the Metro Plan is written to preserve historic structures in the Metro area. There are no
transportation specific Historic preservation Element policies in the Metro Plan the directly relate to the
2035 Springfield Transportation System Plan. However, individual projects in the TSP that use Federal
funding must go through a National Environmental Policy Act (NEPA) process during project
development. The NEPA process includes requirements for historic preservation which the City will
adhere to. This Metro Plan amendment does not alter compliance with the Historic Preservation
Element of the Metro Plan, and is consistent with this Metro Plan Element.
EXHIBIT A, Page 34 of 48
J. Energy Element
The Energy Element of the Metro Plan deals with the conservation and efficient use of energy in the
metropolitan area and is meant to provide a long -range guide to energy - related decisions concerning
physical development and land uses.
The Energy Element of the Metro Plan contains the following relevant policies related to the Springfield
2035 Springfield TSP: J.2, J.7 and J.B.
J.2 Carefully control, through the use of operating techniques and other methods, energy related actions,
such as automobile use, in order to minimize adverse air quality impacts. Trade -offs between air quality
and energy actions shall be made with the best possible understanding of how one process affects the
other.
J.7 Encourage medium- and high- density residential uses when balanced with other planning policies in
order to maximize the efficient utilization of all forms of energy. The greatest energy savings can be
made in the areas of space heating and cooling and transportation. For example, the highest relative
densities of residential development shall be concentrated to the greatest extent possible in areas that
are or can be well served by mass transit, paratransit and foot and bicycle paths.
J.8 Commercial, residential, and recreational land uses shall be integrated to the greatest extent
possible, balanced with all planning policies to reduce travel distances, optimize reuse of waste heat and
optimize potential on -site energy generation.
The Springfield 2035 TSP contains goals and polices which support these Energy Element policies. These
include, but are not limited to:
• Goal 1: Community Development — Provide an efficient, sustainable, diverse, and
environmentally sound transportation system that supports and enhances Springfield's
economy and land use patterns.
• Policy 1.2: Consider environmental impacts of the overall transportation system and strive to
mitigate negative effects and enhance positive features. (NOTE Action #1— Strive to reduce
vehicle - related greenhouse gas emissions and congestion through more sustainable street, bike,
pedestrian, transit, and rail network design, location, and management, and Action #2 —
Coordinate the transportation network with new alternative energy infrastructure such as
electric vehicle charging stations, natural gas, and hydrogen cell fueling stations.
• Policy 13: Provide a multi -modal transportation system that supports mixed -use areas, major
employment centers, recreation, commercial, residential, and public developments, to reduce
reliance on single- occupancy vehicles (SOVs).
The above stated TSP goals and policies are examples of consistency between the Springfield 2035 TSP
and relevant Energy policies. The proposed amendment will further support and enhance the Metro
Plan's Energy Element by considering environmental impacts and energy usage when planning and
implementing Springfield's transportation system. The TSP will also enhance the pedestrian
environment for new and redeveloped properties, creating a more liveable community and support
I_1
EXHIBIT A, Page 35 of 48
mixed uses with high frequency transit. The proposed amendment is consistent with this Metro Plan
Element.
K. Citizen Involvement Element
The Citizen Involvement Element of the Metro Plan recognizes that active, on- going, and meaningful
citizen involvement is an essential ingredient to the development and implementation of any successful
planning program. A Public Involvement Program for the update of the 2035 Springfield Transportation
System Plan was developed in preparation of the Project. This Program was reviewed and endorsed by
the Committee for Citizen Involvement (i.e. the Springfield Planning Commission). The Program outlined
the information, outreach methods, and involvement opportunities available to the citizens during the
process. Details of the process are included in the Statewide Planning Goal 1 finding of this report. The
proposed amendment is consistent with the Metro Plan Element.
CONCLUSION: Based on the analysis above, the proposed amendment is
consistent with the Metro Plan.
RECOMMENDATION: Based on the findings and conclusions in this staff report,
staff has demonstrated that the proposed amendment is consistent with the
applicable SDC amendment criteria of approval (Section 5.4 -13) and Lane County
Code amendment criteria of approval (Section 12.225). Staff recommends that
the proposed amendment be approved.
EXHIBIT A, Page 36 of 48
STAFF REPORT ATTACHMENT `A': STATISTICS from the SPRINGFIELD 2035
Build -1 travel demand model
These results use the Springfield 2035 BUILD 1 (full build) model, which incorporates the
Springfield 2030 land use plan.
The coordinated population for Springfield created by PSU /PRC was used to derive population
and housing growth for the model study area. The employment forecast was made by LCOG
based on historical trends.
Note that this model does not include the Envision Eugene land use or the Coburg Crossroads
land use. It does not include the future projects for Eugene or Coburg. This is because the
Springfield model was completed first, prior to any work on Coburg or Eugene.
Future updates to Eugene and inclusion of the Coburg changes will create some changes in the
Springfield results.
This model incorporates the RTP transit system. This includes BRT along Main St, and McVay.
This transit system has not been optimized at this stage to enhance boardings. Future updates are
expected, and these changes will create some changes in the Springfield results.
Comparisons are made below with TRANSPLAN, the regional TSP for the Eugene /Springfield
area. There are significant differences between TRANSPLAN and the SPRINGFIELD travel
model:
a) TRANSPLAN geography is that of the METROPLAN; it does not include the City of
Coburg. The SPRINGFIELD 2035 geography is that of the current MPO which includes
Coburg and some additional Lane County land surrounding the UGBs.
b) TRANSPLAN model used 295 transportation analysis zones; the 2035 SPRINGFIELD
model uses 666 transportation analysis zones. Thus, the latter has more refinement in the
analysis units.
c) TRANSPLAN model did not have special treatment for BRT system operations; the 2035
SPRINGFIELD model does.
d) TRANSPLAN land use included the TRANSPLAN nodes. The 2035 SPRINGFIELD
model has no specific nodes specified.
e) TRANSPLAN used the TPR vehicle trip rate reduction of10% allowed by the TPR. The
2035 SPRINGFIELD model did not. (Below, VTR= vehicle trip reduction). Under this
reduction trips from areas designated as mixed -use, pedestrian friendy areas are removed
and transferred to other modes.
EXHIBIT A, Page 37 of 48
POPULATION and EMPLOYMENT
MPO Study area
Springfield Study area
2010/11
2035
Household Population
Group Quarters Population
Total Population
246,126
7,953
254,079
306,478
9,974
316,452
Housing Units
110,649
137,917
Covered Employment
116,561
164,654
Springfield Study area
Eugene Study Area
2010/11
2035
Household Population
Group Quarters Population
Total Population
67,668
652
68,320
84,298
817
85,115
Housing Units
28,365
35,588
Covered Employment
28,409
37,855
Eugene Study Area
Coburg Study Area
2010/11
2035
Household Population
Group Quarters Population
Total Population
170,358
7,289
177,647
210,273
9,004
219,277
Housing Units
81,017
97,413
Covered Employment
81,644
114,448
Coburg Study Area
Lane County Study Area
2010/11
2035
Household Population
Group Quarters Population
Total Population
1,032
0
1,032
4,454
140
4,594
Housing Units
412
1,733
Covered Employment'
1,256
3,497
Lane County Study Area
This scenario does not assume additional employees in any area outside the existing UGB.
These aggregations are of the TAZs which enclose and cover the UGBs. TAZs area assigned to a city if
the majority of the residences and /or employment are within the UGB.
TRANSPLAN
2010/11
2035
Household Population
Group Quarters Population
Total Population
7,068
12
7,080
7,454
13
7,467
Housing Units
2,953
3,183
Covered Employment
5,879
8,854
This scenario does not assume additional employees in any area outside the existing UGB.
These aggregations are of the TAZs which enclose and cover the UGBs. TAZs area assigned to a city if
the majority of the residences and /or employment are within the UGB.
TRANSPLAN
2015
2020
Household Population
1296,500
320,500 (estimated)
Total Po ulation
301,400
325,400
Covered Employment
1 153,020
164,110
EXHIBIT A, Page 38 of 48
SPRINGFIELD TSP STAFF REPORT ATTACHMENT'B'
TECHNICAL MEMORANDUM
Central Lane RTSP: Comparison of Draft Goals and Objectives
in Eugene, Springfield, Coburg, and Lane County Transportation
System Plans; and Proposed List of Goals for the RTSP
PREPARED FOR: RTSP Core Team
PREPARED BY: Kate Lyman, CI-12M HILL
Sumi Malik, CI-12M HILL
DATE: June 1, 2012
This memorandum compares current drafts of the goals and objectives within the Eugene, Springfield, Coburg
Transportation System Plans (TSPs) and the existing (2002) Central Lane MPO Regional Transportation Plan
(TransPlan) and 2004 Lane County Transportation System Plan. The drafts compared in this memo for Eugene,
Springfield, and Coburg are current as of March 2012. Using the goals common to all existing regional documents,
this memo proposes a draft list of goals for the RTSP.
Each TSP has organized its goals, objectives, and policies differently. Eugene has designated a list of overarching
goals with objectives and policies that don't necessarily nest under the goals. Springfield has designated goals
with policies nested underneath each goal; Springfield's TSP does not include objectives. Coburg has a list of goals
with corresponding objectives under each goal. Lane County has several goals combined into distinct categories
with policies that directly implement each goal. However, although the structures are different, the content and
policy intent is similar in many cases. The overarching themes of goals, objectives, and policies within each plan
are listed below. Goals, objectives, and policies are quoted in the following sections when not quoted below.
The following goals are proposed for the RTSP. The language of these goals mirrors the language used in the goals
of the 2007 RTP to the extent possible.
Goal 1: Enhance mobility.
• Eugene: Eugene's draft objectives 7 -9 discuss mobility.
• Springfield: Draft policy 3.5 support mobility improvements.
• Coburg: Draft Goal 4 indirectly relates to mobility.
• Lane County: Goal 4 supports vehicle mobility. Goal 6 supports bicycle and pedestrian mobility. Goal 10
supports mobility for public transportation.
• TransPlan: Objective #1 supports mobility.
Goal 2: Enhance accessibility and connectivity.
• Eugene: Eugene's draft objectives 7 -9 discuss accessibility. Eugene's draft policy #7, which states
"Complete safe, comfortable, and direct sidewalk and bikeway networks between key destinations,
transit stops, and residential areas," addresses connectivity.
• Springfield: Springfield's draft policy 3.4 directly supports connectivity improvements. Draft policy 1.3
supports accessibility to mixed use areas, major employment centers, recreation, commercial, and
residential and public developments.
• Coburg: Coburg's draft Goal 3 relates to connectivity improvements. Draft Goal 4 indirectly relates to
accessibility.
EXHIBIT A, Page 39 of 48
• Lane County: Goal 4 supports vehicle accessibility and connectivity. Goal 6 supports bicycle and
pedestrian accessibility and connectivity. Goal 10 supports accessibility and connectivity for public
transportation.
• TransPlan: TransPlan's Goal #2 directly specifies accessibility and connectivity. Objective #1 supports
accessibility.
Goal 3: Improve safety.
• Eugene: Draft Goal 1 refers to safety. Objectives 1 -5 refer to safety and health.
• Springfield: Draft policy 2.1 directly supports safety on the roadway network. Draft policy 2.4 directly
supports safety on the bicycle and pedestrian network. Draft policy 3.5 supports safety for all users.
• Coburg: Draft goal 1 and corresponding objectives support safety for all modes.
• Lane County: Goals 1 and 5 support safety on roadways and bridges, respectively. Goal 6 supports safety
for bicycle and pedestrian travel. Goal 13 promotes railroad and highway safety.
• TransPlan: Goal #2 and Objective #2 directly support safety.
Goal 4: Ensure financial stability.
• Eugene: Draft objectives 15 -16 support cost effectiveness.
• Springfield: Draft policy 4.1 and implementing action items support cost effectiveness.
• Coburg: Draft goal 8 and corresponding objectives support cost effectiveness.
• Lane County: Goals 23 -25 support cost effectiveness.
• TransPlan: The intent of Finance Policy #1: Adequate Funding is to promote cost- effectiveness. Finance
Policy #1 states "Support development of a stable and flexible transportation finance system that
provides adequate resources for transportation needs identified in TronsPlon.
Goal S: Promote environmental responsibility.
• Eugene: Draft goals 2 and 3 and draft objectives 1 -5 support health and livability. Draft objective 17
supports mitigating climate change.
• Springfield: Draft policies 2.3, 2.4, 2.5, 2.6, 2.7, 3.2, 3.3, 3.4, and 3.7 are intended to promote health and
livability.
• Coburg: Draft goal 5 supports livability and community health.
• Lane County: Goal 9 supports community livability. Goals 17 and 18 promote community health.
• TransPlan: Transportation System Improvements System -Wide Policy #4: Neighborhood Livability
supports this theme. The policy states "support transportation strategies that enhance neighborhood
livability"
Goal 6: Support economic viability.
• Eugene: Draft goals 12 -14 support economic development.
• Springfield: Draft policy 1.1 supports economic development.
• Coburg: Draft goal 5 supports economic development.
• Lane County: Goals 17 and 22 promote economic development.
• TransPlan: Goal #2 and objective #4 support economic development.
Goal 7: Ensure consistency with other plans and efficient coordination with other agencies.
• Eugene: Draft objective 10 supports ensuring consistency with other plans.
• Springfield: Draft policy 2.8 supports coordination with other agencies.
EXHIBIT A, Page 40 of 48
• Coburg: Draft goal 5 supports consistency with other plans. Goal 7 supports coordination with other
agencies.
• Lane County: Several policies in the TSP support coordination with other agencies in specific ways. For
example, policy 2 -b supports coordination with ODOT. It states "The County shall coordinate, as
appropriate, with ODOT in: (i) plan development; (ii) managing the existing state system; and (iii)
designing and developing facility improvements on the State system in Lane County." Also, policy 7 -a
supports coordination with other agencies; it states "In planning and implementing transportation system
improvements, Lane County will coordinate with other affected jurisdictions to maximize bicycle and
pedestrian route connectivity."
• TransPlan: Objective #6 supports coordination with other agencies.
Goal 8: Promote social equity.
• Eugene: Draft objective #6 promotes social equity.
• Springfield: Draft policy 2.5 promotes equitable access to transit. Draft policy 1.4 promotes equitable
access to bicycle and pedestrian facilities.
• Coburg: Draft goal 5 promotes social equity and discourages disproportionate impacts to low- income and
minority communities.
• Lane County: The Lane County TSP does not have a policy on social equity.
• TransPlan: TransPlan does not have a specific goal, objective, or policy that refers to social equity.
However, the description of finance policies on page 39 of chapter two states that one characteristic of
the desired transportation finance system is "provision of equity among competing users, payers,
beneficiaries, and providers of the transportation system."
Goal 9: Coordinate transportation and land use planning.
• Eugene: Draft goal 1 and draft objective 10 support coordination of transportation and land use planning.
• Springfield: Draft policy 1.3 supports coordination of transportation and land use planning.
• Coburg: Draft goal 5 supports coordination of transportation and land use planning.
• Lane County: Goal 20 and associated policies support coordination of transportation and land use
planning.
• TransPlan: Land Use Policies #145 in TransPlan support coordination of transportation and land use
planning.
1. Eugene TSP Draft Goals and Objectives
The Eugene TSP includes four overarching goals and eight sets of objectives. The objectives are separate from
and not necessarily tied to a specific goal. The Eugene TSP also includes policies that directly support each
objective; these are not listed here because the topic areas are captured accurately within the goals and
objectives.
Goals
Goal 1: Create an integrated multimodal transportation system that is safe and efficient; supports local
land use and economic development plans; reduces reliance on single- occupancy automobiles; and
enhances community livability.
Goal 2: Advance regional sustainability by providing a transportation system that improves economic
vitality, environmental health, social equity, and well- being.
EXHIBIT A, Page 41 of 48
Goal 3: Strengthen community resilience to changes in climate, increases in fossil fuel prices, and
economic fluctuations through adaptations to the transportation networks.
Goal 4: Distribute the benefits and impacts of transportation decisions fairly and address the
transportation needs and safety of all users, including youth, the elderly, people with disabilities, and
people of all races, ethnicities and incomes.
Draft Objectives
Safety and Health
1. Double the percentage of pedestrian, bicycle, and transit trips by the year 2031.
2. Improve community health by increasing physical activity as part of the transportation system.
3. Reduce exposure to auto - related air pollutants.
4. Support the reduction in quantities of harmful airborne pollutants associated with transportation'.
5. Improve safety and security for all users, especially for the most vulnerable; strive for zero fatalities.
Social Equity
6. Use future transportation investments to reduce or eliminate disparities between neighborhoods in
access, economic benefits, safety, and health.
Access and Mobility for all modes
7. Foster neighborhoods where 90 percent of Eugene residents can meet most daily needs without relying
heavily on an automobile.
8. Improve the comfort and convenience of travel, especially for walking, bicycling, carpooling, and riding
transit.
9. Improve trip reliability for the movement of freight, and other trips where arriving on -time is of the
highest importance.
Community Context
10. Ensure consistency between transportation investments and all relevant adopted and accepted local
plans, such as Envision Eugene, A Community Climate and Energy Action Plan for Eugene, Airport Master
Plan, and the Pedestrian and Bicycle Master Plan.
11. Maintain broad community and political support for this Transportation System Plan.
Economic Benefit
12. Support redevelopment priorities by promoting compatible transportation investments along key transit
corridors and in core commercial areas, including downtown.
13. Promote access to jobs, services, education, and shopping for residents and visitors of Eugene.
14. Encourage infrastructure and programs that allow residents to reinvest in the local economy by reducing
expenditures on fuel and vehicle use.
Cost Effectiveness
15. Optimize benefits relative to public, private, and social costs over the plan's time horizon.
16. Maximize the life of the current transportation system.
Climate and Energy
17. Focus on transportation programs and projects that help to:
a. reduce total community -wide fossil fuel use by 50% by 2030;
b. reduce vehicle miles traveled per capita by 10% by the year 2020; and
1 Such as acetaldehyde and benzene, two pollutants associated with motor vehicle operation that don't yet meet Oregon benchmarks.
EXHIBIT A, Page 42 of 48
c. reduce community -wide greenhouse gas emissions 10% below 1990 levels by 2020.
Ecological Function
18. Improve water quality and lower the rate of stormwater runoff as it relates to new transportation
infrastructure.
19. Reduce the urban heat island caused by dark surfaces, such as asphalt, that absorb and re- radiating heat.
20. Foster transportation investments that avoid damaging and improve habitat areas, where possible.
2. Springfield TSP Draft Goals and Policies
The Springfield TSP includes four overarching goals that correspond to a set of policies that implement each goal.
The Springfield TSP does not include objectives.
Goal 1: Community Development
Policy 1.1: Manage.Springfield's street, bike, pedestrian, rail and transit system to facilitate economic growth of
existing and future businesses in Springfield.
Policy 1.2: Consider environmental impacts of the overall transportation system and strive to mitigate negative
effects and enhance positive features.
Policy 1.3: Provide a multi -modal transportation system that support mixed use areas, major employment centers,
recreation, commercial, residential and public developments, to reduce reliance on single- occupancy vehicles.
Policy 1.4: Strive to increase the percentage of bicycle and pedestrian system users by planning, designing and
managing systems to support the needs of diverse populations and types of users.
Goal 2: System Management
Policy 2.1: Manage the roadway system to preserve safety, longevity and operational efficiency
Policy 2.2: Manage traffic operation systems for efficient freight /goods movement along designated freight, truck
and rail routes in Springfield.
Policy 23: Expand existing TDM programs related to carpooling, alternate work schedules, walking, bicycling and
transit use in order to reduce peak hour congestion and reliance on single- occupancy vehicles.
Policy 2.4: Maintain and preserve safe and efficient bike and pedestrian system in Springfield.
Policy 2.5: Coordinate with LTD to increase the transit system's accessibility and convenience for all users,
including the transportation disadvantaged population.
Policy 2.6: Manage the on- street parking system to preserve adequate capacity and turnover for surrounding land
uses, while also assuring major activity centers meet their parking demand through a combination of shared,
leased, and new off - street parking facilities and TDM programs.
Policy 2.7: Maximize the use and utility of existing infrastructure through efficient management of traffic control
devises.
Goal 3: System Design
2 The term "heat island" describes built up areas that are hotter than nearby rural areas. Heat islands can affect communities by increasing
summertime peak energy demand, air conditioning costs, air pollution and greenhouse gas emissions, heat - related illness and mortality,
and water quality. Source: U.S. Environmental Protection Agency, htip: / /www.epa.gov /hiri/ (last accessed February 6, 2012).
a Best practices for emergency response standards can be found in the Congress for a New Urbanism (CNU) /Institute of Transportation
Engineers (ITE) Proposed Recommended Practice, Designing Walkable Urban Thoroughfares: A Context Sensitive Approach.
EXHIBIT A, Page 43 of 48
Policy 3.1: Implement planned vehicular, pedestrian, bicycle and transit routes consistent with Springfield's local
Conceptual Street Map.
Policy 3.2: Expand and enhance Springfield's bikeway system and provide bicycle system support facilities for both
new development and redevelopment /expansion.
Policy 3.3: Street design standards should be flexible and allow appropriate sized local, collector and arterials
streets based upon traffic flow, geography, efficient land use, social, economic and environmental impacts
Policy 3.4: Provide for a continuous transportation network with reasonably direct travel routes between
destination points for all modes of travel.
Policy 3.5: Address the mobility and safety needs of motorists, transit users, bicyclists, pedestrians, freight and the
needs of emergency vehicles when planning and constructing roadway system improvements.
Policy 3.6: Preserve corridors, such as rail rights -of -way, private roads, and easements that are identified for
future transportation - related uses.
Policy 3.7: Provide for a pedestrian environment that supports adjacent land uses and is designed to enhance the
safety, comfort, and convenience of walking by providing direct routes and removing barriers when possible.
Policy 3.8: Coordinate the design of Springfield's Transportation System with relevant local, regional and state
agencies.
Policy 3.9: Support provision of rail - related infrastructure improvements as part of the Cascadia High -Speed Rail
Corridor project.
Policy 3.10: When a project includes reconstructing or constructing new intersections, a roundabout alternative is
to be analyzed to determine if it is a feasible solution based on site constraints, including ROW, environmental
factors, and other design constraints. When the analysis shows that a roundabout is a feasible alternative, it
should be considered the City's preferred alternative due to the proven substantial safety benefits and other
operational benefits.
Goal 4: System Financing
Policy 4.1: Support development of a stable and flexible transportation finance system that provides adequate
resources for transportation needs identified in Springfield's Transportation System Plan (TSP).
3. Coburg TSP Goals and Objectives
The Coburg TSP includes eight overarching goals that correspond to one or more objectives. The Coburg TSP has
not yet created a draft set of policies.
Goal 1: Safety for all modes
Develop a transportation system that safely and efficiently accommodates transportation needs for all modes.
Objectives:
• Address known safety issues and conflict areas within and among modes by reducing the number of
conflicts and using best - practices design solutions for transportation facilities.
• Improve bicyclist /pedestrian safety and user comfort at locations with perceived or documented safety
issues, without creating additional operational hazards, particularly in the vicinity of schools.
Goal 2: Street Network and Hierarchy
Develop a street network system that evenly distributes traffic throughout the community, lessening traffic
impacts on residential streets.
EXHIBIT A, Page 44 of 48
Objectives:
• Plan streets including consideration for existing and future land uses to ensure that development is
accommodated with appropriate transportation facilities.
• Arterials should be safe, high - volume traffic movers serving as a regional connector. Access to an arterial
shall normally be from the collector road system. It shall be protected against strip development and
access driveways that diminish the mobility of through traffic.
• Collectors shall serve traffic from local streets to the arterials system. Individual accesses, while more
frequent than on arterials, shall be managed to minimize degradation of capacity and traffic safety.
• Local streets shall provide direct property access and access to collectors and minor arterials. Service to
through - traffic movement shall be discouraged.
• Design streets to efficiently and safely accommodate emergency service vehicles.
Goal 3: Connectivity for all Modes
Establish a transportation system that provides for connections to and from activity centers such as schools,
commercial areas, parks, and employment centers. Local roads, transit routes, and paths connect to regional
transportation networks.
Objectives:
• Enhance multi -modal connections east - -west and north -south within Coburg and to destinations
throughout the region. Address system gaps, increase bicycle and pedestrian connectivity, and increase
transportation options for the community. Policy, project, or program links bicyclists and pedestrians with
transit and other non - single occupancy vehicle opportunities.
• Provide public transportation system connections between Eugene and Coburg, including supportive
infrastructure within Coburg, such as park- and -ride facilities and bicycle and pedestrian access to transit
stops.
• Take a long -range view in approving street patterns for new development. Align and connect new streets
to reduce travel distance, promote the use of alternative modes, efficiently provide utilities and
emergency services, and evenly disperse traffic.
Goal 4: Traffic Operations
Create a street system that safely and efficiently distributes vehicular traffic. Alleviate existing and anticipated
future traffic congestion for efficient vehicle operations.
Objectives:
• Address known traffic congestion issues and potential future traffic congestion, while meeting applicable
mobility and traffic queue standards for local, county, and state roadways.
Goal 5: Livability and Economic Vitality
Support, sustain, and enhance community livability and protect the quality and integrity of residential and
business areas in Coburg. Anticipate and accommodate future development assumptions for Coburg. Improve the
aesthetics and retain the historical character within the historical district and maintain the rural character of the
town.
Minimize impacts on social considerations in the City of Coburg, including consideration of environmental justice
populations.
Objectives:
EXHIBIT A, Page 45 of 48
• Maintain consistency with local, regional and statewide land use plans. Use appropriate historical design
elements including street trees, old fashioned street lights, alternatives to suburban style sidewalks in
new residential areas, and narrow residential streets. Improve aesthetics, especially at city entranceways
such as Interstate 5 interchange area.
• When land is developed or divided, allowing adequate street right -of -way in order to obtain adequate
street widths in accordance with City adopted street plans.
• Minimize impacts on existing and future development and minimize impacts to low- income and minority
populations. Ensure that community goals are not adversely affected by transportation projects.
Goal 6: Environmental Impacts
Minimize or avoid adverse impacts on natural and social resources within Coburg. Ensure groundwater, storm
run -off and surface water is protected from impacts from transportation projects.
Objectives:
• Protect groundwater, storm run -off, and surface water, and protect known and potential environmentally
sensitive habitats and threatened and endangered species. Utilize low impact development techniques
including bioswales or other appropriate design solutions to address runoff from impervious surfaces.
Improve drainage systems in general, preferably through natural systems where feasible and appropriate.
Goal 7: Support for Implementation
Create projects that are generally agreed upon and meet the needs and interests of stakeholders within
acceptable timelines. Create a transportation system that is in line with future expectations of community
stakeholders and leaders.
Objectives:
• Create community- supported projects and alternatives that are in line with future expectations of
community stakeholders and leaders including the City, County, and State expectations.
Goal 8: Cost Effectiveness
Create effective projects that meet TSP goals compared to the cost, and are able to be funded given current and
expected funding levels.
Objectives:
• Create projects that are consistent with benefits that are provided. Create projects that are practical and
affordable solutions.
4.2002 TransPlan and 2007 Regional Transportation Plan
The 2002 TransPlan contains two goals, seven objectives, and several policies. Goals, objectives, and policies are
not directly tied to each other. The goals and objectives in the 2007 Regional Transportation Plan are identical to
those presented in the 2002 TransPlan.
Goals
Goal #1; Integrated Transportation and Land Use System. Provide an integrated transportation and land use
system that supports choices in modes of travel and development patterns that will reduce reliance on the auto
and enhance livability, economic opportunity, and the quality of life.
Goal tl2: Transportation System Characteristics. Enhance the Eugene - Springfield metropolitan area's quality of
life and economic opportunity by providing a transportation system that is:
a) Balanced,
b) Accessible,
EXHIBIT A, Page 46 of 48
c) Efficient,
d) Safe,
e) Interconnected,
f) Environmentally responsible,
g) Supportive of responsible and sustainable development,
h) Responsive to community needs and neighborhood impacts, and
i) Economically viable and financially stable.
Objectives
Objective #1: Accessibility and Mobility. Provide adequate levels of accessibility and mobility for the efficient
movement of people, goods, and services within the region.
Objective #2: Safety. Improve transportation system safety through design, operations and maintenance, system
improvements, support facilities, public information, and law enforcement efforts.
Objective #3: Environment. Provide transportation systems that are environmentally responsible.
Objective #4: Economic Vitality. Support transportation strategies that improve the economic vitality of the
region and enhance economic opportunity.
Objective #5: Public Involvement. Provide citizens with information to increase their awareness of transportation
issues, encourage their involvement in resolving the issues, and assist them in making informed transportation
choices.
Objective #6: Coordination /Efficiency. Coordinate among agencies to facilitate efficient planning, design,
operation, and maintenance of transportation facilities and programs.
Objective #7: Policy Implementation. Implement a range of actions as determined by local governments,
including land use, demand management, and system improvement strategies, to carry out transportation
policies.
Policies
TransPlan includes three pages of policies. Policies are organized within the following topic areas:
• Land use
• Transportation demand management
• Transportation system improvements
•
System -wide
•
Roadways
•
Transit
•
Bicycle
•
Pedestrian
•
Goods movement
•
Other modes
• Finance
5. Lane County TSP
The Lane County TSP was adopted in 2004. It includes 25 goals in several categories and corresponding policies to
implement each goal. Categories of goals and goals are quoted below.
EXHIBIT A, Page 47 of 48
Roads
Goal 1: Maintain the safety, physical integrity and function of the County Road network through the routine
maintenance program, the Capital Improvement Program, and the consistent application of road design
standards.
Goal 2: Promote a safe and efficient state highway system through the State Transportation Improvement
Program and support of ODOT capital improvement projects.
Goal 3: Promote a safe and efficient road network through access management.
Goal 4: Maintain acceptable road performance levels.
Goal 5: Promote a safe, functional, and well- maintained bridge network in Lane County.
Bicycle and Pedestrian Facilities
Goal 6: Provide safe and convenient opportunities for bicycle and pedestrian travel throughout Lane County.
Goal 7: Promote logical and efficient bicycle and pedestrian connections within the Lane County transportation
system and between the County's and other jurisdictions' transportation systems.
Goal 8: Promote connectivity between non - motorized and other transportation modes.
Goal 9: Encourage and support the development of recreational bicycling and hiking facilities, recognizing these
activities as important to community livability and to the tourism sector of the local and state economy.
Public Transportation
Goal 10: Support and encourage improved public transportation services and alternatives to single occupancy
vehicle travel between the Eugene - Springfield Metropolitan Area and outlying communities.
Goal 11: Support efforts to maintain rail transportation and to promote high speed rail development.
Goal 12: Support initiatives to develop improved transportation services for County citizens with special needs
Rail Transportation
Goal 13: Promote railway and highway safety at and near road and railway intersections.
Air Transportation
Goal 14: Coordinate transportation system improvement decisions with airport facility needs.
Goal 15: Coordinate land use decisions with airport facility needs.
Goal 16: Support multi -modal transportation services to and from the airport.
Water Transportation
Goal 17: Support Port of Siuslaw development efforts and recognize the Port as important to the state and local
economy.
Goal 18: Protect the long term ecological health of the Siuslaw River.
EXHIBIT A, Page 48 of 48
Pipelines
Goal 19: Protect pipelines as conveyances and for public safety.
Transportation and Land Use
Goal 20: Ensure that transportation projects comply with state land use requirements regarding urban and rural
land uses, and other. federal, state, and local land use requirements.
Goal 21: Provide for coordinated land use review when making decisions about transportation facilities.
Goal 22: Encourage adequate road improvements for new development.
Financing and Recommended Improvements
Goal 23: Maintain long -term County Road Fund stability by making annual budget adjustments and following
adopted priorities.
Goal 24: Use the County Road Fund effectively by following the priorities established in the 1991 Road Fund
Financial Plan (updated 1995).
Goal 25: Maintain effective partnering relationships with cities and the Oregon Department of Transportation
(ODOT).
EXHIBIT B, Page 1 of 92
91,
7 6�f�i%� ' 1
ROIISO�O�i011 System Plcn
City of Springfield
2035 Transportation System Plan
City of Springfield
225 51h Street
Springfield, OR 97477
March 17, 2014
EXHIBIT B, Page 2 of 92
EXHIBIT B, Page 3 of 92
t
vnnsoe�ian sy:5ein vmn
Table • contents
Acknowledgements......................................................................................
..........:.................... vi
Acronyms and abbreviations ..................................................................... ...............................
viii
Chapter1: Introduction ..................................................................................
............................... l
Planoverview ..................................................................:.......................
........:...................... 1
TheCity's first TSP .....................................................................................
............................... 2
Regionalcoordination ..............................................................
..............................2
Transportation project development .....................................
..............................3
Public and agency involvement ...........................................
............................... 3
Economic development priority areas ..............................................
............................... 3
Planningcontext ......................................................................................
..............................3
Transportation planning environment ....................................
..............................4
Financial environment .............................................................
............................... 7
Organization of the 2035 TSP ................................................................
............................... 8
Chapter 2: Goals and policies .......................................................................
..............................9
Creating goals, policies, and action items .........................................
..............................9
2035 TSP goals, policies, and action items .........................................
............................... 9
Chapter 3: Transportation System Plan process ..........................................
.............................17
Existing and future needs ....................................................................
............................... 17
Existing conditions analyses ................................................................
............................... 17
2035 forecast analysis ..........................................................................
............................... 18
No Build transportation system assumptions ...................................
............................... 19
Traffic Volume Development .............................................................
............................... 19
NoBuild analyses ..................................................................................
............................... 19
Evaluationprocess .................................................................................
.............................20
Evaluation framework ..............................................................
.............................20
Project identification and screening .....................................
.............................21
Projectevaluation ..................................................................
............................... 22
Chapter 4: Transportation planning tool box ...............................................
.............................23
Toolbox ..................................................................................................
............................... 23
Landuse ..................................:................................................
............................... 23
Connectivity.............................................................................
............................... 24
Enhancing and increasing non -auto travel modes ...........
.............................24
Transportation demand management ................................
.............................28
Transportation system management ....................................
.............................29
Neighborhood traffic management .....................................
.............................31
Chapter 5: Transportation plan ......................................................................
.............................33
Planarea ..................................................................................................
.............................33
State and regional planning context .................................................
.............................33
Facilities.....................................................................................
............................... 34
Related plans and policies .....................................................
.............................34
Coordination with plans and infrastructure .........................
.............................36
Guiding principles for street design and operations .......................
.............................37
Functional classification of roadways ...................................
.............................37
Street design standards ...........................................................
.............................41
Truckroutes ..............................................................................
............................... 41
Intersection performance standards ....................................
.............................45
Access management guidelines ...........................................
.............................45
EXHIBIT B, Page 4 of 92
Connectivity guidelines ...........................................................
.............................46
Transitservice .............................................................................
.............................47
Parking......................................................................................
............................... 48
Safety.........................................................................................
............................... 48
Multi -modal improvement projects ....................................................
.............................49
20 -year projects .......................................................................
............................... 51
Beyond 20 -Year projects ........................................................
............................... 63
Studyprojects ............................................................................
.............................64
Transitprojects ...........................................................................
.............................65
Othertravel modes .................................................................
............................... 66
Chapter 6: Funding and implementation ..................................................
............................... 77
20 -year estimated revenue stream .....................................................
..............:..............77
Costof 20 -Year needs ..........................................................................
............................... 78
Potential funding sources ........................................................
.............................78
Chapter 7: Code and policy updates ..........................................................
.............................83
Tables
1
Land use estimates .................................................................................. ...............................
18
2
Evaluation framework ............................................................................. ...............................
20
3
Priority projects in the 20 -year project list ............................................ ...............................
51
4
Opportunity projects in the 20 -year project list ................................. ...............................
53
5
As development occurs projects in the 20 -year project list ............ ...............................
55
6
Beyond 20 -Year projects ......................................................................... ...............................
63
7
Study projects ........................................................................................... ...............................
64
8
Frequent transit network projects ......................................................... ...............................
65
9
Springfield revenue assumptions .......................................................... ...............................
78
10
Project cost estimates ............................................................................. ...............................
78
11
Potential local funding mechanisms ................................................... ...............................
79
12
Potential state and federal grants ....................................................... ...............................
81
Figures
1
Plan area map ............................................................................................. ..............................5
2
Functional classification map .................................................................. .............................39
3
Local truck routes map ............................................................................. .............................42
4
Priority projects in the 20 -year project map .......................................... .............................57
5
Opportunity projects in the 20 -year project map ................................ ...........................:.59
6
As development occurs projects in the 20 -year project map .......... .............................61
7
Beyond 20 -Year project map ..................................:................................ .............................67
8
Transit and study project map ................................................................. .............................69
9
Recommended frequent transit network map .................................... .............................71
10
Roadway project map ......................:....................................................... .............................73
11
Pedestrian and bicycle project map ..................................................... .............................75
Volume 2
Appendix I Plan implementation and recommended ordinance /code language
Appendix II Detailed cost estimates and funding analyses
Appendix III TSP Projects on Lane County Facilities
SPRINGFIELD
� s
OREGON
EXHIBIT B, Page 5 of 92
Volume 3
Appendix A Plans and policies review
Appendix B Existing conditions inventory and analyses
Appendix C No Build analyses
Appendix D 20 -year needs analyses
Appendix E Alternatives evaluation process
Appendix F Metro Plan map
EXHIBIT B, Page 6 of 92
�� „rield
Acknowledgements
Stakeholder Advisory Committee (SAC)
The City of Springfield wishes to acknowledge and sincerely thank the members of the
Stakeholder Advisory Committee (SAC), whose guidance was critical to the development of this
plan.
• Kenneth Hill, freight interest
Brock Nelson, rail interest
Phil Farrington, Springfield Chamber
of Commerce
• Richard Hunsaker, developer interest
George Grier, environmental interest
• Allie Camp, bike and pedestrian
interest
Jim Yarnall, pedestrian interest
(former)
Neal Zoumboukos (former) and
Dave Roth, bicycle interest (former)
• Michael Eyster, transit interest
Tim Vohs, City of Springfield Planning
Commission
• Dave Jacobson and Diana
Alldredge, Metropolitan Planning
Organization Citizen Advisory
Committee
• Bob Brew, City of Springfield City
Council
• Mike Schlosser, Springfield Public
School District
• Lane Branch, Downtown business
interest
• Sean Van Gordon, Planning
Commission liaison (former)
Technical Advisory Committee (TAC)
George Walker, Chuck Gottfried
(retired), and Bill Hamann, City of
Springfield Environmental Services
Division
• Richard Perry and Brian Barnett, City
of Springfield Traffic Engineering
• Ken Vogeney City of Springfield City
Engineer
Matt Stouder, City of Springfield
Engineering Supervisor
• Linda Pauly and Jim Donovan, City
of Springfield Development and
Public Works Department
• Al Gerard, City of Springfield Fire and
Life Safety
• Andrea Riner (former) and Paul
Thompson, Lane Council of
Governments
Celia Barry, Lydia McKinney, and
Sarah Wilkinson, Lane County
• Kurt Yeiter, City of Eugene
• Will Mueller (retired), Sasha Luffig,
and Mary Archer (former), Lane
Transit District
Greg Hyde and Rebecca Gershow,
Willamalane Park and Recreation
District
Chris Watchie, Point2point Solutions
• Ed Moore and Chris Cummings,
Oregon Department of Land
Conservation and Development
wi 1
Project team
City of Springfield
David Reesor, Project Manager
• Tom Boyatt
• Molly Markarian
Brian Conlon
Len Goodwin
EXHIBIT B, Page 7 of 92
John Tamulonis
Ken Vogeney,PE
Greg Mott
Brian Barnett, PE, PTOE
Oregon Department of Transportation (ODOT)
Savannah Crawford, Project • Terry Cole
Manager
CH2M HILL
Kristin Hull, Project Manager • Brandy Steffen
• Darren Hippenstiel, PE • Darren Muldoon, AICP
Kittelson and Associates
• Julia Kuhn, PE
• Joe Bessman, PE
0
• Matt Kittelson, PE
EXHIBIT B, Page 8 of 92
Spri "gfield
Acronyms and abbreviations
2035 TSP
Springfield 2035 Transportation System Plan
AASHTO
American Association of State Highway and Transportation Officials
ADA
Americans with Disabilities Act
COPR
Central Oregon and Pacific Railroad
DLCD
Oregon Department of Land Conservation and Development
EWEB
Eugene Water and Electric Board
FTN
Frequent Transit Network
HSIP
Highway Safety Improvement Program
1 -5
Interstate 5
LCDC
Land Conservation and Development Commission
LID
Local Improvement District
LOS
level of service
LTD
Lane Transit District
Metro Plan
Springfield's current comprehensive planning document, 2004 update
MPO
Metropolitan Planning Organization
MUTCD
2009 Manual of Uniform Traffic Control Devices
NTM
Neighborhood Traffic Management
ODOT
Oregon Department of Transportation
OHP
Oregon Highway Plan
OR 126
Oregon State Highway 126
ORS
Oregon Revised Statutes
OTP
Oregon Transportation Plan
RRFB
J rectangular rapid flashing beacon
RTP
Regional Transportation Plan
RTSP
Regional Transportation System Plan, currently being updated
SAC
Stakeholder Advisory Committee
SDC
Systems Development Charge
SOV
single- occupancy vehicle
STIP
State Transportation Improvement Program
TAC
Technical Advisory Committee
TAP
Transportation Alternatives Program .
TDM
Transportation Demand Management
SPRINGFIELD
1I•
OR[OON
TGM Transportation and Growth Management
TIF Tax Increment Financing
TPR Transportation Planning Rule
TransPlan Joint Transportation System Plan for Eugene and Springfield, last
amended in 2002
TSM
Transportation System Management
TSP
Transportation System Plan
UGB
urban growth boundary
UP
Union Pacific Railroad
v/c
volume to capacity
I
EXHIBIT B, Page 10 of 92
Sprb.yfleld
Chapter l: Introduction
The Springfield 2035 Transportation System Pion (2035 TSP) meets state requirements for a
transportation system plan and is a resource for future transportation decision making. The 2035
TSP identifies the preferred future multi -modal transportation system and the City's policies
related to the transportation system. It also identifies the function, capacity, and location of
future facilities, as well as planning -level costs for needed improvements to support expected
development and growth and possible sources of funding. This TSP provides the City with
flexibility as staff, the public, and decision makers prioritize and fund critical transportation
investments.
This TSP provides:
• A blueprint for transportation investment
• A tool for coordination with regional agencies and local jurisdictions
Information to ensure prudent and effective land use choices
Solutions to address existing and future transportation needs for bicycles, pedestrians,
transit, vehicles, freight, and rail
The 2035, TSP is the transportation element of and a
supporting document to Springfield's current
comprehensive planning document (Metro Plan, 2004
update) as required by state law. The City updated the
2035 TSP. goals and policies during the planning process
and implemented.the Goal 12: Transportation element
of the Metro Plan. The primary purpose of the goals and
policies is to guide future transportation related decisions
in Springfield. Together with the Metro Plan, the
Springfield 2035 TSP helps the City accommodate new
growth, and maintain and rebuild infrastructure over the
next 20 years consistent with a long -term vision.
Plan overview
This TSP identifies the recommended future multi -modal transportation system and the City's
policies related to the transportation system.
The recommended set of transportation improvements contained in this Plan are divided into
those projects that the City expects to construct in the 20 -year planning horizon and those that
may not be constructed in this time. Because of uncertainty around transportation funding and
land development discussions, some longer -term priority projects could be implemented in the
next 20 years.
• 20 -year projects (the 2035 TSP planning horizon): Projects needed to serve expected
transportation growth over the next 20 years. These projects have planning -level cost
estimates included in this Plan.
Priority projects: Higher -cost and scale roadway, urban standards, and
pedestrian /bicycle projects that would generally require additional right -of -way.
SPRINDPIELD
OiIGON
EXHIBIT B, Page 11 of 92
Opportunity projects: Lower -cost and scale roadway, urban standards, and
pedestrian /bicycle projects that would generally not require additional right -of-
way and that the City could implement as opportunities arise.
As Development Occurs projects: Roadway and pedestrian /bicycle projects that
the City would generally implement through a partnership between the City,
other agencies, and /or private enterprise to support new development or
redevelopment.
• Beyond 20 -year projects: Projects that may be constructed beyond the 20 -year planning
horizon. These projects do not have planning -level cost estimates included in this Plan.
• Study projects: Projects that need further study and refinement. These projects do not
have planning -level cost estimates included in this Plan.
• Frequent Transit Network (FTN) projects: Frequent transit projects that the City has
developed through the ongoing metro -wide Regional Transportation System Plan
process.
The City's first TSP
In 2001, Eugene and Springfield adopted a shared TSP,
Trans Plan (amended 2002), which guided transportation
decisions for both cities inside of a shared urban growth
boundary (UGB). In 2006, the Oregon Legislature passed
House Bill 3337 requiring the two cities to develop
separate UGBs. The State of Oregon's Transportation
Planning Rule (TPR) requires Springfield to develop its
own TSP, within its own UGB. While the Springfield 2035
TSP is an "update" of TransPlon, it is the City's first
independent TSP.
Cars, buses, bikes, and pedestrians all
share the public roadway
The 2035 TSP ensures the vision for the transportation system meets community needs,
communicates the City's aspirations, and conforms to state and regional policies. The City will
implement this plan flexibly over time to respond to changes in economic development needs,
community values, or regional, state or federal policies. The City will revisit this TSP when
conditions change; many cities update their TSPs every five to seven years.
Regional coordination
To ensure regional consistency as Eugene, Springfield, and Coburg develop their own TSPs, the
regional partners, through the Central Lane Metropolitan Planning Organization (MPO), will
develop a Regional Transportation System Plan (RTSP). Because mobility needs do not stop at a
city border, the RTSP will consider linkages between the cities' and Lane County's transportation
systems and ensure that the transportation networks work together. The RTSP will also focus on
performance measures that address regional facilities in Springfield. The development of the
RTSP, which will replace TransPlon, is in process and the MPO will complete it once Eugene,
Springfield, and Coburg adopt. independent TSPs.
In addition to the state - required Regional Transportation System Plan (RTSP), the Central Lane
MPO is also responsible for maintaining a federally required Regional Transportation Plan (RTP).
The Central Lane MPO updates the RTP every four years and represents the region's stated
transportation investment priorities. The Springfield 2035 TSP must be consistent with the RTP.
EXHIBIT B, Page 12 of 92
Throughout the process of developing the 2035 TSP, the City of Springfield coordinated with the
City of Eugene, Lane County, Lane Transit District, Central Lane MPO, and Oregon Department
of Transportation (ODOT).
Transportation project development
This Plan includes projects that will support expected growth in.the City. While the Plan does not
prioritize projects, the City will prioritize investments through annual updates to the Capital
Improvement Program. Once the City identifies a project for implementation through the
Capital Improvement Program and project development begins, the City will conduct project -
level planning, public involvement, and engineering to confirm the need, define the project
limits and develop a design for the project.
Public and agency involvement
The public and staff from other partner agencies were extensively involved in the development
of the 2035 TSP. Opportunities for engagement included:
• Project website (including web -based surveys)
• Seven Stakeholder Advisory Committee (SAC) meetings
• Seven Technical Advisory Committee (TAC) meetings
• Two public open houses and one listening booth at the Sprout! Farmers Market
• Targeted outreach with local community service organizations
• Planning Commission, City Council and Lane County Board of Commissioners public
hearings, as part of the adoption process
Through these public involvement activities, the City provided the citizens of Springfield with a
variety of forums to identify their priorities for future transportation projects. The City's project
website (as well as an email list of interested citizens,
businesses, City staff, boards /commissions, and agencies)
announced public meetings, disseminated information,
and solicited input and feedback from the community. In
addition, City staff met with the Planning Commission and
City Council at each major milestone leading up to the
2035 TSP.
Planning context
Opportunities and constraints provided by the physical
environment, community vision, City, regional, and state
policies, and the current and anticipated financial
climate have shaped the Springfield 2035 TSP. The
sections below describe how these characteristics may
influence the implementation of the projects, programs,
and policies included in the TSP.
SP0.�1,NG-_FL�D
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Economic
ant priority
areas
Four areas - Glenwood, Gateway,
Downtown, and the Main Street
Corridor- represent considerable
growth opportunities and
significant transportation
challenges.
The City is focused on achieving
mixed -used development and
investing in a multi -modal
transportation system that supports
transit, walking, and biking in these
areas.
EXHIBIT B, Page 13 of 92 .
Transportation planning environment
The City of Springfield is located within urban Lane County and is part of the Central Lane MPO
area. Springfield's current boundaries are generally defined by the McKenzie River to the north,
Interstate 5 (1 -5) to the west, the Willamette River to the south, and rural Lane County to the east.
Figure 1 presents a map of the Plan area that includes the City of Springfield and sections of
unincorporated Lane County that are part of the Springfield UGB. The TPR requires inclusion of
these urban unincorporated areas in the 2035 TSP.
The City of Springfield developed along an east -west spine between the McKenzie and
Willamette Rivers. Land use patterns in the City, surrounding areas, and the metro region as a
.whole are mostly suburban, with relatively low- density residential areas often separated from
commercial areas. This development pattern results in heavy travel to and from residential areas
during morning and evening rush hours.
The Springfield 2035 TSP supports land use strategies to mitigate the strain on the roadways by
shortening home -to -work trips, supporting transit service, and making walk /bike trips more
practical for working, shopping, and other activities. With Metro Plan's focus on more compact
development, significant future residential development is likely to occur in the Glenwood
Riverfront District, Jasper- Notron area, and along the Main Street corridor (see Volume 3,
Appendix F: Metro Plan map).
Regional and local travel within Springfield's UGB is shaped
by three primary highways: OR 126 Expressway, OR 126
Business Route (Main Street), and Interstate 5 (1 -5), which
forms the western boundary of the UGB. While these
highways provide access to, from, and through Springfield,
they also create significant barriers and constraints. ODOT
operates and maintains these highways; the City has no
direct operational authority over these highways or their
interchange ramp areas. OR 126 Expressway and 1 -5 are
both limited access highways. Running the length of the
City, OR 126 Business Route (Main Street) provides the
primary route for continuous east -west travel in Springfield
providing access to hundreds of jobs and homes.
Congestion is commonplace along all of these highways
and recorded crash rates on OR 126 Business Route suggest potential safety - related challenges
for bicyclists and pedestrians. More information is included in Volume 3, Appendix B: Existing
conditions inventory and analysis.
In Springfield, as in the rest of'the country, officials, and community members recognize the
importance of providing transportation options for local and regional travel and better
management of existing facilities. Providing users with non -auto modes and managing existing
facilities prior to adding new and /or costly infrastructure reduces congestion, saves money, and
provides health benefits for Springfield citizens and visitors. A balanced transportation system
with a range of choices that includes both demand and system management techniques can
reduce the need for roadway widening projects that can have high costs or significant
community impacts.
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EXHIBIT B, Page 16 of 92
Financial environment
A combination of federal, state, county, city, and private funds have traditionally supported
transportation capital improvements. While this remains the case, the overall funding paradigm
at both the state and national levels is currently in flux. The recent national recession, reduction
or elimination of federal subsidies for timber counties, state - legislated revenue dedicated to
discrete projects, the overhaul of the State Transportation Improvement Program (STIP), and
Congress' move away from federal earmarks for infrastructure have all combined to make
revenue forecasting an uncertain exercise. Today, as in the past, revenue streams are insufficient
to address both the backlog of maintenance and preservation needs across Oregon and the
needs of future transportation investments that support the future economic, health, and well-
being of its communities.
Given these uncertainties, it is nearly impossible to forecast accurately how much funding is likely
to be available for transportation investments and what projects or programs will receive
funding. At one end of the financial spectrum, the nation could view future investments in
transportation infrastructure as paramount to ensuring America's prosperity. Under this scenario,
an infusion of federal transportation funds, unseen since the freeway - building era of the 1950s,
could result in a substantial increase in dollars available for state and local projects. This could
allow for increased and broader investments in projects that enhance the "active"
transportation network as well as those that provide new capacity on the roadway system to
benefit freight and private automobile travel. Something similar, although at a much smaller
scale, occurred when Oregon received one of the last federal earmarks for the specific purpose
of bridge rehabilitation and replacement along the 1 -5 corridor. The recent Transportation
Investments Generating Economic Recovery (TIGER) grant funding is also reflective of this
approach.
At the other end of the financial spectrum, the federal government could choose not to invest in
transportation infrastructure. Should this be, the case, funds available locally from the Highway
Trust Fund and other federal funding sources will continue to diminish. This approach will
materially affect the ability of state and local governments to make network and system
improvements that support all modes of travel.
The most likely financial future for the City, and the nation, lies between these two bookends. It is
unclear whether federal, state, and local governments will find the means to reinvest in
transportation infrastructure in the future consistent with the vision and priorities in the Oregon
Transportation Plan (OTP). The level of uncertainty faced by local planners and decision makers
is unprecedented in the recent history of transportation planning. Recognizing this context, the
Springfield 2035 TSP includes the City's best thinking about potential funding sources but
acknowledges that adequate funding to implement needed improvements over the next 20
years is unlikely to be available and that predicting the funding streams and types of projects
that can be funded is nearly impossible.
It is unlikely that the City will construct every project contained in the 2035 TSP in the next 20
years. While the 2035 TSP does prioritize planned projects, the City may choose to advance any
of the identified projects as opportunities arise. These opportunities may present themselves as:
• changes in policy or funding at the federal, state, or local level
• local development priorities
• public- private or public - public partnerships
EXHIBIT B, Page 17 of 92
Projects are sorted into a 20 -year list versus those that could occur beyond 20 -years to allow the
City the flexibly to make wise investments consistent with the overall vision contained in the 2035
TSP and to leverage opportunities as they arise. The TSP goals and policies can serve as a guide
when making these decisions over the life of the Plan.
Organization of the 2035 TSP
The Springfield 2035 TSP is comprised of a main document (Volume 1) and two volumes of
technical appendices (Volumes 2 and 3). A separate Executive Summary was also created
Volume 1 (this document) is the "final report" and includes items that will be of interest to the
broadest audience. It is also the portion of the Plan, which is officially "adopted." The main
volume includes:
• Chapter 1: Provides a brief overview of the planning context for the 2035 TSP and the
public process that supported its development
• Chapter 2: Discusses the goals and policies that express the City's long -range vision for
the transportation system
• Chapter 3: Summarizes the process undertaken to develop the 2035 TSP, including the
detailed analysis of existing and future conditions and the screening and evaluation of
transportation strategies and projects
• Chapter 4: Provides a transportation planning "tool box" of principles and strategies that
can guide future project implementation
• Chapter 5: Includes recommended policy guidelines and standards and multi -modal
improvement projects to address existing and forecast transportation needs
• Chapter 6: Provides a summary of transportation revenues and expenses, past trends,
and forecasts of potential future trends
• Chapter 7: Summarizes required changes in the Springfield codes and policies to needed
to implement the TSP
Volume 2 includes technical information that directly supplements Volume 1, including the
specific implementing ordinances for the 2035 TSP and elements from related plans.
Volume 3 includes the technical memoranda that were prepared in the development of the
Springfield 2035 TSP as well as the detailed data and'analysis used to prepare the final report.
EXHIBIT B, Page 18 of 92
I V_f" Chapter 2: Goals and policies
i�anspwtallon System Plon
Creating goals, policies, and action items
The 2035 Transportation System Plan (TSP) goals reflect the community's vision for Springfield's
future transportation system and offer a framework for policies and action items. The goals are
aspirational and are unlikely fully attained within
the 20 -year planning horizon:
The policies, organized by goal, provide high -
level direction for the City's policy and decision -
makers and for City staff. The policies will be
implemented over the life of the Plan.
The action items offer direction to the City about
steps needed to implement recommended
policies. Not all policies include action items.
Rather, action items outline specific projects,
standards, or courses of action for the City
and /or for its partner agencies to take to
implement the TSP. These action items will be
updated over time and provide guidance for
future decision - makers to consider. Many of the
action items respond directly to the needs and
deficiencies identified in the TSP (Volume 3,
Appendix C: No Build analysis and Appendix D:
20 -year needs analysis). Other action items
reflect the need for future transportation
planning efforts, such as refinement plans,
updating ongoing studies, etc.
The City vetted the goals, policies, and action
items through an extensive engagement
Goals
Goal 1: Community development - Provide
an efficient, sustainable, diverse, and
environmentally sound transportation
system that supports and enhances
Springfield's economy and land use
patterns.
Goal 2: System management - Preserve,
maintain, and enhance Springfield's
transportation system through safe,
efficient, and cost- effective transportation
system operations and maintenance
techniques for all modes.
Goal 3: System design - Enhance and
expand Springfield's transportation system
design to provide a complete range of
transportation mode choices.
Goal 4: System financing - Create and '
maintain a sustainable transportation
funding plan that provides implementable
steps towards meeting Springfield's vision.
process. Previously adopted goals, objectives,
and policies found in the joint TSP for Eugene and Springfield (TransPfan; amended 2002) were
used as a foundation to begin the update. Staff also incorporated City Council and Planning
Commission input from previous work sessions, as well as input from the Stakeholder Advisory
Committee (SAC), Technical Advisory Committee (TAC), City staff, and the public to develop
goals, policies, and action items. The City revised the goals, policies, and action items several
times during the planning process. Specific details of this process are in Volume 3 of this Plan.
2035 TSP goals, policies, and action items
Goal 1: Community development
Provide an efficient, sustainable, diverse, and environmentally sound transportation system that
supports and enhances Springfield's economy and land use patterns.
IA
EXHIBIT B, Page 19 of 92
• Policy 1.1: Manage Springfield's street, bike, pedestrian, rail, and transit system to
facilitate economic growth of existing and future businesses in Springfield.
Action 1: When evaluating needed roadway improvements, consider the
economic viability of existing commercial and industrial areas.
Policy 1.2: Consider environmental impacts of the overall transportation system and strive
to mitigate negative effects and enhance positive features.
Action 1: Strive to reduce vehicle - related greenhouse gas emissions and
congestion through more sustainable street, bike, pedestrian, transit, and rail
network design, location, and management.
- Action 2: Coordinate the transportation network with new alternative energy
infrastructure such as electric vehicle charging stations, natural gas, and
hydrogen cell fueling stations.
• Policy 1.3: Provide a multi -modal transportation system that supports mixed -use areas,
major employment centers, recreation, commercial, residential, and public
developments, to reduce reliance on single- occupancy vehicles (SOVs).
Policy 1.4: Strive to increase the percentage of bicycle and pedestrian system users by
planning, designing, and managing systems to support the needs of diverse populations
and types of users, including meeting Americans with Disabilities Act (ADA) needs.
Action 1: Create a network of bicycle and pedestrian routes and way- finding
signage that guides users to destination points.
Goal 2: System Management
Preserve, maintain, and enhance Springfield's transportation system through safe, efficient, and
cost- effective transportation system operations and maintenance techniques for all modes.
Policy 2.1: Manage the roadway system to preserve safety, longevity, and operational
efficiency.
Action 1: Evaluate, update, and implement access management regulations for
new or modified access to the roadway system.
- Action 2: Monitor and adjust signal timing along key corridors as needed to
improve traffic flow and safety.
Action 3: Evaluate and adjust traffic control systems to optimize bicycle travel
along strategic bicycle routes.
Action 4: Coordinate with LTD and Oregon Department of Transportation (ODOT)
to provide auto, pedestrian, and bicycle connections to the transit network.
• Policy 2.2: Manage traffic operation systems for efficient freight and goods movement
along designated freight, truck, and rail routes in Springfield.
Action 1: Adjust traffic control systems to discourage through truck traffic on
residential streets.'
t "Residential Streets" are commonly defined as those with a street classification. of "local" passing through a
residentially zoned area.
SPRINGF�y
�V
GflSGOH
EXHIBIT B, Page 20 of 92
Action 2: Coordinate with rail providers to upgrade at -grade rail crossing
treatments to improve traffic flow and manage conflict points; create grade-
separated rail crossings when possible
• Policy 2.3: Expand existing Transportation Demand Management (TDM) programs related
to carpooling, alternate work schedules, walking, bicycling, and transit use in order to
reduce peak hour congestion and reliance on SOVs.
- Action 1: Coordinate with adopted strategies in the Regional Transportation
Options Pion to increase opportunities for transportation options in Springfield.
- Action 2: Coordinate with Springfield Public Schools to implement the solutions
outlined in Safe Routes to School Action Plans.
Policy 2.4: Maintain and preserve a safe and efficient bike and pedestrian system in
Springfield.
- Action 1: Coordinate with Willamalane Park and Recreation District to maintain
.and preserve the off - street path system.
- Action 2: Prioritize lighting in strategic areas with high pedestrian and bicycle
traffic.
• Policy 2.5: Coordinate with LTD to increase the transit system's accessibility and
convenience for all users, including the transportation- disadvantaged population.
- Action 1: When possible, manage traffic control systems to reduce travel time for
transit and other high- occupancy vehicles along key corridors.
- Action 2: Monitor and adjust bus stop locations as needed to support surrounding
land uses and provide more efficient and safe service.
- Action 3: Coordinate with LTD to reflect LTD's long -range plans in Springfield's
transportation system.
• Policy 2.6: Manage the on- street parking system to preserve adequate capacity and
turnover for surrounding land uses.
- Action 1: Implement Springfield's adopted July 2010 Downtown Parking
Management Plan.
• Policy 2.7: Manage the off - street parking system to assure major activity centers meet
their parking demand through a combination of shared, leased, and new off - street
parking facilities and TDM programs.
- Action 1: Modify parking requirements to assure that they are appropriate for
land uses. The purpose of this action is to reduce parking requirements to utilize
land for economic development.
- Action 2: Consider bike parking recommendations from the 2013 Regional Bike
Parking Study when updating Springfield's bike parking standards.
Policy 2.8 Maximize the use and utility of existing infrastructure through efficient
management of traffic control devises.
Policy 2.9: Use motor vehicle LOS standards to evaluate acceptable and reliable
performance on the roadway-system. These standards shall be used for:
Identifying capacity deficiencies on the roadway system.
EXHIBIT B, Page 21 of 92
• Evaluating the impacts on roadways of amendments to transportation plans,
acknowledged comprehensive plans and land -use regulations, pursuant to the
Transportation Planning Rule (TPR; Oregon Administrative Rules [OAR] 660 -12- 0060).
• Evaluating development applications for consistency with the land -use regulations
of the applicable local government jurisdiction.
• Under peak hour traffic conditions, acceptable and reliable performance is
defined as LOS D.
Performance standards from the Oregon Highway Plan (OHP) shall be applied on
state facilities in the Springfield metropolitan area and alternative mobility targets
will be sought as necessary.
Policy 2.10: The City of Springfield values a safe and efficient travel experience for
bicycle, pedestrian, transit, freight, and auto travel. It is the intent of the City to balance
the needs of these modes through creation of a multi -modal LOS methodology for all
modes and to facilitate and encourage intermodal connections where most
appropriate. Multi -modal LOS generally is reflective of the following:
Transit -LOS is based on a combination of the access, waiting, and ride experience,
as well as travel time, frequency, safety, and reliability.
• Bicycle -LOS is a combination of the bicyclists' experiences at intersections and on-
street and off - street segments in between the intersections. Safety is also a
consideration.
Pedestrian -LOS is based on a combination of pedestrian experience, density of
land use, and other factors including efficiency, safety, and pedestrian comfort
level.
• Auto -LOS is based on a combination of travel time, delay, stops, safety, and
queues.
• Freight -LOS is based on a combination of travel time, delay, stops, safety, and
queues.
• Intermodal -LOS is based on an evaluation of the frequency and convenience of
connections between different travel modes.
- Action 1: Develop and adopt a multi -modal LOS methodology based on
stakeholder input and considerations for land use decisions. Policy 2.9 in the 2035
TSP will apply until the new standard is adopted and in areas where the
evaluation of a multi -modal LOS is not necessary.
Action 2: Once developed, multi -modal LOS methodology will apply to Gateway,
Glenwood, and Downtown and may apply to other specific geographic areas in
the future subject to City Council review and approval. The intent of this action is
to encourage diverse development types such as more mixed -use development
and higher densities in these high - priority economic growth areas of Springfield
and to provide a balanced approach to measuring LOS beyond just motor
vehicles.
Action 3: Develop a process to allow for alternative means of meeting LOS
standards as part of public project development and the land use decision -
making process.
EXHIBIT B, Page 22 of 92
Goal 3: System Design
Enhance and expand Springfield's transportation system design to provide a complete range of
transportation mode choices.
• Policy 3.1: Adopt and maintain a Conceptual Street Map
- Action 1: Update and maintain the Conceptual Street Map to address
transportation system deficiencies, goals, and policies. The Conceptual Street
Map should provide flexibility in connecting destination points, while also
providing assurance to adjacent property owners to the degree possible.
- Action 2: The Conceptual Street Map will indicate the approximate location of
planned "local" classified streets on the adopted map. These "local" streets are
not intended to be adopted on the map. Rather, they are shown as reference.
Streets classified as collectors and arterials will be adopted on the map and are
considered part of the 2035 TSP.
Action 3: Ensure that land use decisions conform to the Conceptual Street Map.
• Policy 3.2: Expand and enhance Springfield's bikeway system and provide bicycle
system support facilities for both new development and redevelopment /expansion.
- Action 1: Require bike lanes and /or adjacent paths along new and reconstructed
arterial and major collector streets.
- Action 2: Provide bike lanes on collector and arterial streets; provide parallel
routes and bike boulevards on adjacent streets where appropriate.
- Action 3: Create frequent bike and pedestrian crossings on wide or high -speed
streets using approved design techniques.
- Action 4: Require bike lanes and paths to connect new development with nearby
neighborhood activity centers and major destinations. Connectivity should
include connecting bike facilities to each other as well as to major destinations.
- Action 5: Install shared - roadway facilities, markings, and /or signage for bicyclists
along roadways with slow vehicular traffic. On- street pavement markings and
traffic calming measures should be considered along such routes.
- Action 6: Create city -wide bike parking stations in strategic locations such as
along major transit routes and in Springfield's central business district.
- Action 7: Design bike transportation routes that separate bicycle traffic from large
volumes of fast - moving automobile traffic.
• Policy 3.3: Street design standards should be flexible and allow appropriate -sized local,
collector, and arterials streets based upon traffic flow, geography, efficient land use,
social, economic, and environmental impacts
- Action 1: Conduct a comprehensive review and update of Springfield street
standards, and develop code to address transportation system deficiencies,
adopted goals, and policies.
- Action 2: Consider effects of stormwater runoff in street design and reduce runoff
through environmentally sensitive street designs for new and reconstructed
streets.
SPRINGFIELD
OREGON
EXHIBIT B, Page 23 of 92
Action 3: Incorporate traffic calming measures into street designs and standards
where appropriate, considering the needs of emergency services vehicles. Traffic
calming measures should reduce vehicular speeds and bypass traffic while
encouraging safe bicycle and pedestrian travel.
Action 4: Integrate pedestrian amenities into street designs that create pedestrian
refuges and allow safe and continuous pedestrian travel.
- Action 5: Provide mid -block pedestrian crossings where appropriate between
major pedestrian destinations and along major pedestrian corridors.
Action 6: Develop criteria in which to evaluate alternative street design concepts.
Policy 3.4: Provide for a continuous transportation network with reasonably direct travel
routes to destination points for all modes of travel.
- Action 1: Design new streets to provide a connected grid network, including
alleyways, when technically feasible.
- Action 2: Construct sidewalks or other suitable pedestrian facilities along local
streets and along urban area arterial and collector roadways, except freeways.
D Policy 3.5: Address the mobility and safety needs of motorists, transit users, bicyclists,
pedestrians, freight, and the needs of emergency vehicles when planning and
constructing roadway system improvements.
- Action 1: Ensure that current design standards address mobility needs and meet
ADA standards.
• Policy 3.6: Preserve corridors, such as rail rights -of -way, private roads, and easements
that are identified for future transportation - related uses.
• Policy 3.7: Provide for a pedestrian environment that supports adjacent land uses and is
designed to enhance the safety, comfort, and convenience of walking by providing
direct routes and removing barriers when possible.
- Action 1: Update and maintain the ADA Transition Plan to address deficiencies in
the existing system and to assist in planning for new system improvements.
- Action 2: Utilize safety studies such as the Main Street Safety Study and the City of
Springfield Safety Study to improve pedestrian conditions along major pedestrian
corridors.
• Policy 3.8: Coordinate the design of Springfield's transportation system with relevant
local, regional, and state agencies.
- Action 1: Work with ODOT, Lane County, and LTD to improve pedestrian and
bicycle facilities along state highways and major transit routes where
appropriate.
- Action 2: Coordinate with Springfield Public Schools to provide key bicycle,
pedestrian, and transit facilities near schools to ensure safe, convenient, and well -
connected routes to schools.
EPAINGFI
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Da�aaN
Action 3: Partner with LTD to provide frequent transit network2 connections along
major corridors. Frequent transit network should connect to local neighborhood
bus service and major activity centers to provide viable alternatives to vehicle
trips.
Action 4: Coordinate existing and planned transportation system and land uses
with LTD to expand the park- and -ride system where appropriate within
Springfield.
Action 5: Coordinate with the Willamalane Park and Recreation District to address
bicycle and pedestrian system deficiencies and address new transportation
system goals and policies in the Willamalane Park and Recreation District
Comprehensive Plan, including providing improved connectivity to parks and
open space areas.
Action 6: Develop and implement criteria that trigger jurisdictional phasing and
transfer of roads, highways, and other applicable transportation facilities.
Action 7: Coordinate with Lane County to ensure transition between rural and
urban transportation facilities within the Springfield urban growth boundary (UGB).
- Action 8: Coordinate with ODOT and the City of Eugene to ensure regional
transportation system connectivity.
• Policy 3.9: Support provision of rail - related infrastructure improvements as part of the
Cascadia High -Speed Rail Corridor project.
- Action 1: In coordination with agency partners, develop a Passenger Rail Plan in
support of Springfield's Downtown District Urban Design Plan. Areas in Springfield
outside of Downtown should be considered, as appropriate.
- Action 2: Further consider regional high speed passenger rail needs coordinated
with the Springfield Downtown District Urban Design Plan and implementation
strategy.
2 The Frequent Transit Network (FTN) represents the highest orders of transit service within the region. The FTN represents
corridors where transit service would be provided, but does not presume specific street alignments. Street alignments will
be determined in future studies. FTN stops will be located closest to the highest density development within the corridor.
FTN Corridors will have the following characteristics:
• Enables a well - connected network that provides regional circulation
• Compatible with and supportive of adiacent urban design goals
• Operates seven days a week in select corridors
• Service hours are appropriate for the economic and social context of the area served
• Coverage consists of at least 16 hours a day and area riders trip origins or destinations are within '4 of a mile -
straight line distance
• Frequency is at least every 10 -15 minutes.in peak travel times
• Speed is no less than 40 percent of the roadway speed limit
• Coverage throughout the region is geographically equitable and serves Title VI protected populations
• Transit service is reliable and runs on schedule
• Transit vehicles are branded
• Transit stations are of high quality with amenities, including bicycle and pedestrian connections to stations and
end -of -trip facilities, such as bike parking. Park and rides are provided at key termini.
SPRINGFIELD
Policy 3.10: When a project includes planning, reconstructing, or constructing new
intersections, all intersection control types are to be evaluated including statutory
control, sign control, geometric control, and signal control. The City's recommended
alternative will be selected primarily on safety and operational efficiency in the context
of mobility needs for all users, adjacent existing and planned land uses, access
considerations, site constraints, availability of right -of -way, environmental factors,
phasing, future needs, safety, construction, and operational costs.
- Action 1: When analyzing the appropriate treatment for a new or reconstructed
intersection, the City will consider the needs consistent with policy 3.10.
Goal 4: System Financing:
Create and maintain a sustainable transportation- funding plan that provides implementable
steps towards meeting Springfield's vision.
• Policy 4.1: Support development of a stable and flexible transportation finance system
that provides adequate resources for transportation needs identified in the Springfield
2035 TSP.
Action 1: Develop criteria that support adopted 2035 TSP goals and policies and
that help prioritize transportation maintenance, preservation, and construction
projects.
Action 2: Give funding priority to bicycle and pedestrian projects that address
significant gaps in the network and that provide key linkages to other
transportation modes.
Action 3: Give funding priority to safety actions and operations to maximize use
and utility of existing system.
- Action 4: Provide financial incentives, improvements and programs at discretion
of City to new and existing local businesses that encourage, multi -modal
transportation options to employees and /or customers.
- Action 5: Require that new development pay for its proportional capacity impact
on the transportation system through ongoing rate updates of Springfield's system
development charge and through proportional exactions as part of the land
development process.
iP0.1X6FirLD
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EXHIBIT B, Page 26 of 92
AALLL
�f Chapter 3: Transportation System
Plan process
The Springfield 2035 Transportation System Plan (TSP) was developed collaboratively with City of
Springfield staff, a Technical Advisory Committee (TAC), and Stakeholder Advisory Committee
(SAC). In addition, the Planning Commission and City Council provided policy direction
throughout the process. The overall vision developed out of extensive public involvement and
with direct input from the TAC, SAC, Planning Commission, and Council. Project staff worked
closely with City Council and the public to identify core community values to be included in
goals and policies that helped shape the evaluation criteria used to develop the 2035 TSP .
project lists. This chapter summarizes the process used to develop and prioritize 2035 TSP projects .
as well as the key themes from the needs analysis, that framed the development of project'
ideas.
Existing and future needs
The 2035 TSP recommendations are based on input received from the community, City staff,
partner agency staff, City policy- makers, a review of existing multi -modal transportation
conditions, forecast deficiencies, and a multi -step evaluation of improvement options. Decision -
making included both analysis of potential transportation improvement options and a detailed
review of relevant state, regional, and local plans and policies. The following sections outline the
key findings from the existing and future needs analyses
that helped shape the improvement options evaluated.
Existing conditions analyses
Inventory of the multi -modal transportation system
characteristics identified existing needs, opportunities,
and constraints. This inventory reviewed all major
transportation - related facilities and services within the
UGB. Key roadway features, traffic conditions, safety
performance, bicycle and pedestrian facilities, and
transit service, among other topics, were analyzed.
Detailed findings of the technical analysis are
summarized in Volume 3, Appendix B: Existing conditions
inventory and analysis. Key findings of the analyses
include:
• The City is currently working with Point2point Solutions on a regional Safe Routes to School
program. As part of these efforts, the City may want to prioritize solutions for the
Centennial Road corridor.
The City and ODOT should continue to prioritize funding and implementation of the
pedestrian safety improvements identified along the Main Street corridor.
Overall, the City has good sidewalk coverage on arterials and collectors. However,
improvement of the quality and continuity of these facilities could enhance the walking
EXHIBIT B, Page 27 of 92
and cycling experience within the City. In addition, sidewalk gaps on routes that provide
direct access to schools, such as Yolanda Road, are notable deficiencies in the network.
• Approximately half of the City's arterials and collectors have some form of designated
bike facility. Notable gaps include Game Farm Road, sections of Harlow Road, 28th
Street, 30th Street /Commercial and Jasper Road. The Glenwood mixed use area also has
minimal bicycle facilities. The most significant gaps are along Franklin and Glenwood
boulevards.
• The shared -use path system is an asset to the community for both pedestrian and bicycle
travel and recreation. However, connections to and between paths could be improved
city -wide. Limited wayfinding at critical points (such as from the 1 -5 Pedestrian and
Bicycle Bridge at Gateway Mall) limits usefulness. A connection between the eastern
terminus of the EWEB path and the McKenzie Levee path could expand access to both
paths and provide a separated facility to improve east /west travel.
• Existing land uses north of Main Street and west of Thurston present barriers for
pedestrians and cyclists. Given the current location of large industrial uses and the OR126
Expressway, pedestrians and cyclists are forced to travel east -west on Main Street, which
presents logistical and potential safety challenges. A new multi -use path connection at
the oxbow of the McKenzie River, near OR] 26 Expressway would provide an essential
east -west connection north of Main Street.
The majority of the intersections studied meet applicable performance standards under
existing conditions. Five intersections studied would require modification if the
performance standards remain as they are today (Laura /Q streets, Pioneer Parkway /OR
126 eastbound, Mohawk Boulevard /OR 126 eastbound ramps, 42nd Street /OR 126
westbound ramps, and S 42nd /Daisy streets).
2035 forecast analysis
Consistent with Goal 2, Eugene and Springfield, Lane County and Lane Council of Governments
(LCOG) staff worked collaboratively to estimate year 2035 population and employment,growth
within the region. This interagency collaboration ensures that the Eugene, Springfield, and
Coburg TSP analyses are based on the same fundamental assumptions and that the population
and employment forecasts are "coordinated" for compliance with state transportation and
land use planning requirements. Table 1 shows the existing and future population and
employment estimates for the City of Springfield.
TABLE 1
Land use estimates
Population
67,683
84,830
17,147 (25 %)
Households
28,300
35,490
7,190(25%)
Employees
29,300
40,240
10,940
"For the purposes of the TSP, land use growth was concentrated only in the existing Urban Growth Boundary (UGB). .
Although the City is considering possible expansions to the UGB, decisions on whether and /or where to expand the
UGB have not been made at the time of adoption of this TSP. The impact of growth occurring outside the existing
UGB will be addressed in an update to the TSP once these decisions have been made.
EXHIBIT B, Page 28 of 92
No Build transportation system assumptions
City of Springfield plans, TronsPlan and the Regional Transportation Plan (RTP) have previously
identified a variety of street, pedestrian, bicycle, and transit projects that could be implemented
in the future. At this point, there are no guaranteed funding sources for any major projects that
will materially affect traveler behaviors and traffic volumes on the City's street network in the
future. As such, the No Build assumes that the existing street, pedestrian, bicycle and transit
system is in -place in the year 2035.
Traffic volume development
Based on estimates of future job and household growth, LCOG developed traffic volume
forecasts for the City's collector and arterial street system, using an "emme" travel demand
model. This model is calibrated to actual traffic volume counts recently measured on streets
within the City. In addition to land use and street network inputs, the model also relies on
information about existing traveler behavior and trip- making characteristics to forecast how
people might use the transportation system in the future.
Based on information obtained from LCOG, coupled with measured traffic counts at 44
intersections and roadways within the City, year 2035 intersection and roadway volumes were
analyzed using a procedure consistent with guidance from ODOT's Analysis and Procedures
Manual (APM).
No Build analyses
The results of the year 2035 No Build analyses are summarized in Volume 3, Appendix C: No Build
analysis. A summary of the key findings include:
• Glenwood Mixed Use Neighborhood: Franklin Boulevard, Glenwood Boulevard, and
McVay Highway and the primary intersections along these streets are anticipated to
experience congestion in the future given the role that they serve in both the regional
and local transportation system.
• 42nd Street Corridor: Five of the seven intersections along this corridor are anticipated to
exceed performance standards. Additionally, congestion is projected in the vicinity of
OR 126 as well as Main Street.
OR 126 Expressway: This corridor is anticipated to experience congestion throughout
much of its length between 1 -5 and 58th Street. This corridor serves as a key east -west
route for intracity, intercity, and statewide trips to /from Central Oregon.
• Main Street (OR 126 Business): The 42nd Street, OR 126, and 58th Street intersections are
forecast to exceed capacity. In addition, the corridor segments between 21st and 48th
Streets as well as in the vicinity of the OR 126 intersection are anticipated to experience
congestion.
• Centennial Boulevard: The intersections and corridor are forecast to operate acceptably
although the recorded crash history indicates that the corridor experiences higher than
typical rear -end crashes, especially between Pioneer Parkway and Mohawk Boulevard.
• Corridor Strategies: In addition to projected levels of congestion at intersections and
along corridors, the No Build analyses also include the identification of a variety of
possible strategies related to improving the walking and cycling environment, improving
�� SPRiNGFIE{OOH
connectivity, enhancing freight mobility, improving the efficiency of the existing roadway
system (i.e., transportation system management measures) and reducing the need for
single occupancy vehicle travel through transportation demand management.
Evaluation process
Using the existing and No Build opportunities and constraints analysis and input from the public,
the team identified potential projects ideas. The multistep process used to screen and evaluate
projects is described below.
Evaluation framework
Early in the 2035 TSP process, the project team worked with the SAC, TAC, Planning Commission,
and City Council to develop an evaluation framework. The City translated the draft 2035 TSP
policies into evaluation criteria to help determine the relative priority of projects. Table 2 presents
the evaluation framework.
TABLE 2
Evaluation framework
L � G4J
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1A
Is consistent with community development goals and vision in Metro Plan and the draft Springfield 2030 Plan
1 B
Minimizes impacts on natural resources, scenic and historic areas and open spaces as reflected in the City's
Goal 5 Resource inventory
1c
Enhances connectivity within and between major activity centers including employment centers, high density
residential areas and community resources like major parks
1D
Minimizes negative impacts to existing and future neighborhoods from transportation projects and policies
1E
Reduces greenhouse gas emissions from passenger vehicle travel through provision of services and facilities
that reduce reliance on single- occupancy vehicle travel
IF
Minimizes negative impacts to developable and developed commercial and industrial sites
16
Supports safe and efficient multi -modal access to major developable employment. centers, City
redevelopment priorities (e.g., Glenwood, Downtown, Gateway and Jasper - Natron), and other key
destinations
IF
Maintains the economic viability of existing commercial and industrial areas
adIC%@&YMB WMEMMM
2A
Improves mobility on designated freight, truck and rail routes over no build scenario
2B
' Improves mobility for through -traffic on highways and freeways over no build scenario
2C
Manages access on state, county and city roadways toward relevant standards
2D
Supports roadway improvements, that provide safe access for all users, regardless of age, ability or mode of
transportation
2E .
Provides bike and pedestrian connectivity to transit corridors
2F
Provides support for reliable transit service on key routes
2G
Reduces delay at key arterial intersections
2H
Addresses known safety issues
L � G4J
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OxIGON
Project identification and screening
The City identified potential 2035 TSP projects (project ideas) from a variety of sources, including:
• Existing plans such as the Regional Transportation Plan and the Willamolone Park and
Recreation District Comprehensive Plan
• Planning Commission and City Council work sessions
• TAC and SAC
• City staff
• Community members through online comment maps or at public meetings
Through this process, more than 100 project ideas were identified for further refinement and
screening. Five maps illustrated these ideas generally showing different geographic areas of the
City. Ideas were grouped into the following general categories:
Connectivity or multi -modal roadway improvement
• Bicycle or pedestrian improvement
• Transit improvement.
Off- street path improvement
• Safety or congestion improvement
• Ongoing studies
• Intersection or capacity improvement
;^�tF";
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3A
- Closes key gaps in the bike system
313
Closes key gaps in the pedestrian system
13C
Addresses known safety issues
3D
Supports or enhances ability to implement key state or regional projects /priorities
3E
Promotes intermodal connectivity
3F
Addresses pedestrian and bike connectivity gaps and safety issues that affect key routes to schools (as
defined in Safe Routes to Schools programs) and parks
3G
Provides transit, bike, and pedestrian connections to multiuse paths
3H
Reduces trip lengths for all users
31
Closes key gaps in the roadway system
U
Closes key gaps in the transit system
4A
Prioritizes investments that provide maximum benefit for the associated cost
4B
Considers future operation and maintenance costs in investment choices
4C
Leverage investments in the existing system where the existing system can meet future needs
Project identification and screening
The City identified potential 2035 TSP projects (project ideas) from a variety of sources, including:
• Existing plans such as the Regional Transportation Plan and the Willamolone Park and
Recreation District Comprehensive Plan
• Planning Commission and City Council work sessions
• TAC and SAC
• City staff
• Community members through online comment maps or at public meetings
Through this process, more than 100 project ideas were identified for further refinement and
screening. Five maps illustrated these ideas generally showing different geographic areas of the
City. Ideas were grouped into the following general categories:
Connectivity or multi -modal roadway improvement
• Bicycle or pedestrian improvement
• Transit improvement.
Off- street path improvement
• Safety or congestion improvement
• Ongoing studies
• Intersection or capacity improvement
;^�tF";
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EXHIBIT B, Page 31 of 92
Initially, "fat lines" graphically represented these project ideas. The ideas were not developed
into specific projects. Rather, City staff, the TAC, and SAC discussed the ideas conceptually.
Once a complete initial list of ideas was developed, City staff and the project team screened
project ideas based on the following questions:
Does the project idea address a transportation problem?
• Is the project idea within the control /influence of the City to implement?
• Is the project idea technically and politically feasible?
Could the project idea be constructed at a reasonable cost?
If the answer to any question was "no," the project idea was set aside; all others were
advanced for further study. The SAC and TAC reviewed the screened set of project ideas.
In addition to this formal screening process, staff eliminated a few projects later in the process
because they recognized that a project did not meet one of the evaluation criteria. Generally,
this was because more detailed transportation operations analysis showed that a project did not
address a transportation need. In addition, staff added a few project ideas later to respond to
transportation needs that were not identified initially.
Project evaluation
The City moved several types of projects forward without applying the evaluation criteria. These
projects fell into the following categories:
• Study projects
Frequent transit network projects The team then qualitatively applied the evaluation criteria to
the remaining projects, including all urban standards projects, higher cost and scale roadway
projects, and higher cost and scale pedestrian and bicycle projects. The team initially
considered all evaluation criteria, but the following criteria were most useful in differentiating
among projects:
• Impacts to developable parcels, developed properties, and neighborhoods
• Support for new development and redevelopment priorities
• Mobility benefits for freight, through- traffic, and local traffic
• Connectivity for all modes, particularly around major activity centers
• Closing gaps on pedestrian and bicycle routes and improving pedestrian and bicycle
routes near major activity centers and schools
• Safety benefits for all users
Using the qualitative evaluation, the team differentiated projects as those that could be
implemented in the next 20 years and those that could be implemented beyond the 20 -year
planning horizon. The SAC, TAC, Planning Commission, and City Council reviewed the results of
the evaluation. The outcomes of this process are presented in Chapter 5.
EXHIBIT B, Page 32 of 92
9f Chapter 4: Transportation planning
tool box
This chapter summarizes a range of transportation - related strategies and solutions for the City to
consider as it implements projects and makes policy and financial decisions in the future. The
type of solutions included are intended to help the community maximize prior investments in the
existing infrastructure, enhance the quality and availability of the pedestrian and bicycle
facilities, and plan for the long -term transportation needs of the community.
This "tool box" provides context for the recommended projects included in Chapter 5. The tool
box can guide the City as it evaluates projects that were not contemplated at the time the TSP
was written, and provide tools specifically applicable for the management of local streets and
neighborhood traffic issues.
Tool box
The tool box measures fall into the following categories:
• Land use
• Connectivity of the transportation network
• "Active" transportation (i.e., walking, cycling, and transit)
• Transportation demand management
Transportation system management and operations
Intersection control
• Neighborhood traffic management
Land use
The types and intensities of land uses are important factors influencing travel demand and the
way that people get around. Low- density development tends to be linked to high motor vehicle
use compared to dense, mixed -use developments, which usually lead to shorter trips and use of
a greater variety of modes.
In Eugene and Springfield, these dense, mixed -use neighborhoods are sometimes referred to as
"nodes." The "nodal concept" was accepted by the Land Conservation and Development
Commission (LCDC) as a regional measure to reduce vehicle miles traveled in compliance with
the 2001 Oregon Transportation Planning Rule (TPR). As described in Springfield's current
comprehensive planning document (Metro Plan; 2004 update), the nodal concept calls for
mixed -use, pedestrian - friendly developments that increase the density of people and jobs along
major transportation corridors to combine a mix of diverse and compatible land uses with public
and private improvements designed to be pedestrian- and transit - oriented.
The 2002 update of TronsPlan identified more than 50 potential neighborhood node sites
throughout the Eugene - Springfield metropolitan area. Currently there are about 430 acres of
mixed -use zoning in the nodes designated at Riverbend, Mohawk, Marcola Meadows,
Downtown, and Glenwood. An additional node is planned for the Jasper- Natron area in
southeast Springfield. Implementation Action 2.4 in the 2011 adopted Springfield 2030
EXHIBIT B, Page 33 of 92
Refinement Plan Residential Land Use and Housing Element calls for Springfield to increase
opportunities for mixed -use nodal development.
Along with the strategies identified below, the City's plans to increase density in these nodes,
especially in Glenwood, could move more residences closer to jobs, increase mixed -use
development, and help mitigate the strain on east -west streets by shortening home -to -work trips,
supporting transit service, and making walk /bike trips more viable for work, shopping, and other
activities.
Connectivity
A well- connected network reduces the need for "out -of- direction travel" while supporting
efficient distribution of travelers among multiple travel ways (roads, trails, sidewalks, etc.).
Connectivity improvements for bicycle and pedestrian networks are effective enhancements to
the transportation system, including improved access to transit. A common example of efficient
street connectivity is the traditional grid system, with north -south and east -west streets spaced at
generally equal distances.
In Springfield, the existing arterials and collectors, along with topography, natural resources, and
land development patterns preclude this type of network on a large scale. However, it is
possible to plan for improved connectivity by preserving
right -of -way for future connections and prioritizing funding
to alleviate existing and future bottlenecks at key crossing
locations. In fact, the 2012 Phase I Glenwood Refinement
Plan calls for establishing a grid block pattern of streets to
support redevelopment in the Glenwood Riverfront to
provide multi -modal internal circulation, disperse traffic,
facilitate walking and biking, orient development to a
public realm, and enable clear and direct physical and
visual routes between major arterials and the riverfront.
Enhancing and increasing non -auto travel
modes
The following outlines examples of pedestrian, bicycle, and
transit improvements that can enhance the quality of travel
experience, provide more travel options, reduce the
number of automobile trips, and improve overall safety of
the transportation system.
Pedestrian system
Pedestrian facilities enable people to walk (or use mobility
devices) safely and efficiently between their homes, work,
shopping, schools, and recreational activities. A well -
planned pedestrian network includes walkways (sidewalks,
mixed -use paths), safe crossing locations, and convenient
connections to other modal facilities, such as transit stops.
Low- density development - this
type of land use is spread out
and usually easier to get around
in a car or bus
Mixed -use development - a
combination of uses nearby one
another, such as employment;
dining, and housing within
walking or biking distance
(called nodes or nodal
development)
Multi- modal - walking, biking,
taking transit, or using other
ways to get around beyond cars
Single occupancy vehicle (SOV)
- when people drive alone
Sidewalks and multiuse pathways and trails provide the backbone of the walkway and multi -
modal facility connections. A variety of pedestrian crossing treatments are available for
implementation, each applicable under a different range of factors. Below is a brief description
of the various pedestrian crossing types.
SPRINGFIELD
oataoH
SPRINGFIELD.
• Unmarked crosswalks - Under Oregon law,
pedestrians have the right -of -way to cross at
any unsignalized intersection.
• Marked crosswalks - Street markings that
indicate the location of a crosswalk to motorists.
These markings may occur at intersections or
mid -block locations. Marked crosswalks can be
accompanied by signs, curb extensions,
pedestrian hybrid beacons, rectangular rapid
flashing beacons (RRFBs), pedestrian signals,
and /or median refuge islands. They may also be
raised (such as the speed bump photo
example).
• Pedestrian hybrid beacon signal - A pedestrian -
activated beacon that interrupts car traffic to
provide a signalized protected crossing for
pedestrians at an otherwise unsignalized
location.
• Signalized Intersection - Signalized intersections
typically include a WALK signal that can be
automatically triggered or push- button
activated.
• Rectangular Rapid Flashing Beacon (RRFBs) -
User- activated amber lights that have an
irregular flash pattern similar to emergency
flashers on police vehicles. These supplement
warning signs at unsignalized intersections or
mid -block crosswalks.
• Raised Pedestrian Refuge - Space within a
street median to allow pedestrians to easily
cross one direction of traffic, wait for a gap in
traffic, and then proceed to cross the other
direction of traffic.
• Grade - Separated Crossing - Underpasses or
overpasses that allow pedestrians to entirely
avoid conflicts with automobiles when crossing
a busy street. When used as part of a multi -use
path, grade- separated crossings also
accommodate bicycles.
EXHIBIT B, Page 35 of 92
Bicycle system
Bicycle facilities include public infrastructure (bicycle lanes, mixed -use paths, signage, and
striping), as well as supporting private facilities (secure bike parking, changing rooms, and
showers at worksites). Each plays a role in developing a comprehensive bicycle network.
Many different bicycle facility types comprise a complete bicycle network that connects people
to their destinations and allows bicyclists to feel safe riding. Currently, Springfield's bicycle
network primarily includes bicycle lanes, shared roadways, and multi -use paths. Examples of the
various bicycle facility types available for consideration by the City in the future are provided
below.
Low-traffic bikeway, includes a
neiahborhood traffic circle to slow car traffic
SPPINGF
ORl60N
Shared Roadway - Any street without
dedicated bicycle facilities is a shared street. In
Springfield, shared streets include all public
streets without striped bicycle lanes. Where
traffic volumes are low, shared streets are
generally safe and comfortable facilities for
bicyclists. Some streets may have "sharrow"
pavement markings that remind both drivers
and cyclists to share the road. While "sharrows"
are not required for automobiles and cyclists to
share the road, they are a good reminder to
both, especially on popular or signed on- street
bike routes for cyclists.
Low - Traffic Bikeway (aka Bike Boulevard) - Low -
traffic bikeways are also known as bike
boulevards and provide high - quality bicycle
facilities on continuous street corridors with low
vehicular traffic volumes. Typically, low- traffic
bikeways occur on local streets which are
configured to prioritize bicycle trips and reduce
through automobile trips. Local automobile
access is retained. Bicycling conditions are
improved by reducing stop signs to a minimum
along the route and providing way- finding
information specific to bicyclists. The purpose of
a bike boulevard is to improve comfort and
safety for bicyclists while still allowing local
automobile access. Bike boulevards have a
distinctive look that includes a variety of traffic
calming elements.
Low- traffic bikeways are best used when they
parallel arterials and collectors and can provide
bicyclists with a low- volume alternative route.
Low- traffic bikeways are used extensively in
Portland and many areas of Eugene, and
recent rider surveys indicate that bicyclists
overwhelmingly prefer them compared to
major streets with bicycle lanes.
EXHIBIT B, Page 36 of 92
Bicycle Lane - Bicycle lanes are striped lanes on
the street dedicated for the exclusive use of
bicycles. Typically, bicycle lanes are placed at
the outer edge of pavement, but to the inside
of right -turn lanes and /or on- street parking. The
intent of bicycle lanes is to improve bicycle
safety by providing a clearly marked separate
area for cyclists. They can provide direct
connection between origins and destinations
where a separate multi -use path is not
available.
Bicycle Crossings -These treatments are used
to connect bicycle facilities at high traffic
intersections, multi -use path connections, or
other bike routes. Typical treatments include
bicycle detectors at traffic signals, bicycle -only
signals, or preferential movements for bicyclists,
such as only allowing bikes to make a through
movement.
Bicycle Parking - Bicyclists also benefit from
several other types of bicycle support facilities,
such as secure bicycle parking, either open or
covered racks, and storage lockers for clothing
and gear. The City currently requires bicycle
parking to be included in new development
and redevelopment as a condition of approval.
Lane Transit District buses are outfitted with
bicycle racks that allow bicyclists to bring their
bikes with them on transit. Allowing bicycles on
transit vehicles increases the range of trips
possible by both transit and bicycling and
reduces bicyclists' fears of being stranded in the
event of a mechanical or physical breakdown.
Buffered bike lanes - These wider bike lanes with
more space between the curb and car travel
lane provide bicyclists greater comfort than a
typical on- street bike lane. They either can be
painted the some as a bike lane or can have
diagonal paint between the car and bike lane,
which can visually signal drivers that there is
more space for bikes and prevent cars from
driving in the bike lane.
Cycle tracks - A bike lane (or two) on the street
but physically separated from car traffic by
paint, parked cars, or even elevated at
sidewalk height. It is a combination of a
separated path and bike lane, but is separate
from car traffic and the sidewalk.
Multi -use pathways
Multi -use pathways are separated facilities dedicated to
pedestrians, bicyclists, and other non - motorized uses. In
Springfield, the Willamalane Park and Recreation District
owns, operates, and maintains several multi -use paths
and the City of Springfield owns, operates, and /or
maintains a few paths. In both cases, Willamalane Park
and Recreation District and the City of Springfield closely
coordinate operation, maintenance, planning, funding,
and constructing multi -use paths in Springfield.
These pathways have an integral role in recreation,
commuting, and accessibility for residents. Springfield's
off- street paths are located throughout the City, including along open space areas and through
residential and industrial neighborhoods. Existing and planned pathways serve and connect
several neighborhoods in Springfield but there are some significant remaining gaps in the system,
most notably safe and efficient east -west connections. Future projects implemented by,both the
City and in coordination with Willamalane Park and Recreation District can help provide a
comprehensive system of pathways.
EXHIBIT B, Page 37 of 92
Transit system
Transit service is an important part of a balanced
transportation system, providing an alternative to private
automobile travel for distances too far to walk or bike. The
City's partnership with the Lane Transit District (LTD), as
well as with other agencies in the region, is essential to the
development of a more comprehensive transit system.
The City can also play a direct role in improving transit
service by providing facilities that support transit use, such
as transit stop amenities and safe and efficient pedestrian
connections.
Supporting an environment in which transit is a
convenient travel option for the Springfield community
requires more than direct investments in transit service.
Land use, connectivity, and streetscape features have a major influence on the success of
transit service. For this reason, potential local strategies to improve transit service include
planning for land uses that are transit supportive and providing connections to transit stops from
surrounding neighborhoods and commercial areas.
Transportation demand management
Transportation Demand Management (TDM) measures include any method intended to allow
travelers to do one or more of the following:
shift travel demand from single occupancy vehicles (SOVs) to active modes (biking,
walking, or taking transit) or carpooling
• travel at less congested times of the day
avoid the trip entirely through telecommuting or mixed land uses
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EXHIBIT B, Page 38 of 92
Some common examples of TDM strategies include:
• programs such as carpool matching assistance or flexible work shifts
• parking management strategies
• direct financial incentives, such as transit subsidies
• facility or service improvements, such as bicycle lockers or increased bus service
Some of the most effective TDM strategies are best implemented by employers and are aimed
at encouraging non -SOV commuting, such as preferential carpool parking, subsidized transit
passes, and flexible work schedules. Cities and other public agencies can play a critical role in
support of TDM through provision of facilities and services, as well as development policies that
encourage TDM.
Transportation system management
Transportation System Management (TSM) refers to a wide range of strategies that improve
operations of an existing roadway system to avoid costly and /or undesirable roadway widening.
TSM measures can be focused on improving transportation "supply" through enhancing
capacity and efficiency, typically with advanced technologies to improve traffic operations.
Alternatively, they may be focused on reducing transportation demand through promoting
travel options and on -going programs intended to reduce demand for drive -alone trips,
especially during peak travel periods. The goals and policies (Chapter 2) of the 2035 TSP address
system management and propose specific actions to improve how Springfield's transportation
system operates. Other regional and local plans in the Eugene - Springfield area address system
management, including the Regional Transportation Plan (RTP), LTD's Long Range Transit Plan
(LRTP), and the Central Lane MPO ITS (Intelligent Transportation System) Plan. Some of the key
strategies identified for consideration in Springfield are summarized in the following sections.
Signal retiming /optimization
Signal retiming and optimization refers to updating timing plans to
better match prevailing traffic conditions and coordinating signals.
The City can apply timing optimization to existing systems or may
include upgrading signal technology, including signal
communication infrastructure or signal controllers or cabinets. Signal
retiming can reduce travel times and be especially beneficial to
improving travel time reliability. In some strategic areas, the City
could implement signal retiming to improve or facilitate pedestrian
movements during each cycle in high pedestrian or desired
pedestrian traffic areas, eliminating the need to push pedestrian
crossing buttons. The City could facilitate bicycle movements by
installing bicycle detection along major bicycle routes. Signal
upgrades often come at a higher cost and usually require further
coordination between jurisdictions.
Advanced signal systems
Advanced signal systems incorporate various strategies in signal operations to improve the
efficiency of a transportation network. Strategies may include coordinated signal operations
across jurisdictions, as well as centralized control of traffic signals. Advanced signal systems can
reduce delay, travel time and the number of stops for vehicles. In addition, these systems may
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EXHIBIT B, Page 39 of 92
help reduce vehicle emissions and have a high impact on improving travel time reliability.
Examples of advanced signal systems include adaptive or active signal control, traffic
responsive control, and transit or freight priority signal systems.
Roundabouts
Roundabouts can serve as an effective TSM strategy. A
roundabout is a circular intersection with yield control on
all approaches, islands to separate flows of traffic from
each other and pedestrians, and geometric features to
slow down traffic. Roundabouts have many benefits over
stop - controlled and signalized intersections. They have
proven safety benefits, often have lower delays, can lead
to less congestion, can reduce the need for widening,
reduce speeds in and around the roundabout, and as a
result can benefit the surrounding community.
Although roundabouts can be more costly to design and
install when compared to other intersection control types,
they have a lower operating and maintenance cost than
traffic signals. Topography must be carefully evaluated in
considering a roundabout, given that slope characteristics at an intersection may render a
roundabout infeasible. Recently, several new roundabouts have been successfully built in
Springfield, including the multi -lane Pioneer Parkway / Hayden Bridge roundabout.
While there are many'benefits to roundabouts, some challenges can also exist. These often
include increased need for right -of -way and additional landscape maintenance.
Real -time traveler information
Real -time transportation system information can provide the traveling public with information on
current traffic and road conditions, availability of parking supply; traffic; interruptions due to
roadway incidents, street maintenance, and construction; and weather conditions. Traveler
information is collected from street sensors, traffic cameras, vehicle probes, and, recently, media
access control devices such as cell phones and laptops. Data from these sources are sent to a
central system and subsequently disseminated to the public so that drivers can track conditions
specific to, their route and can use historical and real -time traffic conditions in making travel
decisions.
When travelers are supplied with information on their trips, they may be able to avoid heavy
congestion by altering a travel path, delaying the start of a trip, or changing which mode they
choose to use. This can reduce overall delay and tail pipe emissions.
Real -time transit information
Transit agencies or third -party sources can disseminate both
schedule and system performance information to travelers
through a variety of applications, such as in- vehicle,
wayside, or in- terminal dynamic message signs, as well as
the Internet or wireless devices. Coordination with regional
or multi -modal traveler information efforts can increase the
availability of transit schedules and system performance
information to both regular and potential transit riders. LTD
has implemented real -time transit information at some EmX
EXHIBIT B, Page 40 of 92
stations and is continuing to expand this service through their website and mobile site
These systems enhance passenger convenience and may increase the attractiveness of transit
to the public by encouraging travelers to consider transit because of ease of use, lower costs for
wear and tear to a car, and time to read or do work instead of driving. They do require
cooperation and integration between agencies for disseminating the information.
Access management
Access management describes a practice of managing the number, placement, and allowed
turn movements of intersections and driveways that provide access to adjacent land uses.
Access points are considered in context with traffic flow, safety, capacity, and speed on the
surrounding street system. Within developed areas, access management strategies may include
shared or consolidated access points, restrictions on access point turn movements (medians,
channelized movements), or closing access points. Access management provides several
potential benefits, such as reducing crashes and crash rates, as well as increasing capacity on
arterial and collector streets by maintaining vehicle flows and travel time.
In addition, well - deployed access management strategies can improve travel conditions for
pedestrians and bicycles. Eliminating the number of access points on streets reduces the
number of potential interruptions and conflict points between pedestrians, bicyclists, transit, and
cars.
Access management is adopted typically as a policy in development guidelines. Springfield's
specific access management standards are provided in the Springfield Development Code. The
Oregon Highway Plan (OHP) should be referenced for state highway access requirements.
Neighborhood traffic management
Neighborhood Traffic Management (NTM) describes a set of tools applicable for use in
residential neighborhoods to slow traffic or possibly reduce the volume of traffic. NTM is often
called 'traffic calming' due to its ability to contribute to neighborhood livability. 2035 TSP goals
and policies found in Chapter 2 of the 2035 TSP support traffic calming measures being further
developed in Springfield, in close coordination with emergency management officials. Some
local and regional examples of traffic calming that can potentially be used more in Springfield
are as follows:
• Speed trailer (reader board that displays vehicle speeds)
• Speed table
• Speed humps
• Mini roundabouts
• Entrance treatments
• Raised crosswalks
• Raised intersections
• Traffic diverters
• Medians
• Landscaping and trees
• Chicanes
EXHIBIT B, Page 41 of 92
• Chokers (narrow roadways in short sections)
• Narrow streets
• Closing streets
• Half street closure
• Photo radar
• On- street parking
• On- street protected bicycle facilities
• Selective enforcement
• Neighborhood watch
• Curb extensions
• Pavement texturing
• Tighter intersection curb radii
• Channelization
There are many opportunities, as well as challenges, with NTM. If planned and implemented
correctly, NTM can provide safer, more convenient bike and pedestrian routes on low- traffic
volume streets, and can help reduce automobile speeds. On the contrary, if not planned and
implemented correctly, NTM can create challenges for emergency vehicles attempting to
respond to an emergency and can result in shifting a problem from one neighborhood to
another. Measures ore available to enable effective NTM deployment while also allowing
necessary emergency response time to neighborhoods. A number of streets in Springfield are
identified in the functional classification as neighborhood routes. These streets are typically
longer than the average local street and might otherwise attract cut - through traffic. These may
be appropriate locations for NTM applications.
EXHIBIT B, Page 42 of 92
AWL
on Chapter 5: Transportation plan
This chapter presents the multi -modal Springfield 2035 Transportation System Plan (TSP). The
elements included in the 2035 TSP support the goals and policies presented in Chapter 2 by
logically providing for the efficient care and expansion of the City's multi -modal transportation
system. This chapter provides regulatory framework to guide the expansion of the system and
improvement projects identified to meet the future travel needs within the community.
This chapter includes the:
• State and regional planning context
• Regulatory elements for management and design of roadways
• Multi -modal improvement projects
Plan area
The City of Springfield is located within urban Lane County and is part of the Central Lane
Metropolitan Planning Organization (MPO) area. In general, Springfield's current boundaries are
defined by the McKenzie River to the north, Interstate 5 (1 -5) to the west, the Willamette River to
the south, and rural Lane County to the east.
Figure 1 presents a map of the Plan area that includes the City of Springfield and sections of
unincorporated Lane County that are part of the Springfield urban growth boundary (UGB). The
unincorporated areas within the City's UGB are required to be included in the 2035 TSP by the
Transportation Planning Rule (TPR).
The City of Eugene, located directly west of the Springfield Plan area, is currently undertaking its
own TSP process. The City of Springfield coordinated its TSP directly with City of Eugene, and
other appropriate public agencies, to ensure coordination for regional facilities and issues.
State and regional planning context
While the focus of the Springfield 2035 TSP is the transportation system within the Springfield UGB,
the transportation facilities within the Plan area also have an important role in the state and
regional transportation system. In keeping with statewide planning goals related to interagency
coordination, the TSP is consistent with statewide, county, and regional transportation plans,
policies, and requirements.
The Oregon Revised Statutes (ORS) require that the 2035 TSP addresses the City's current
comprehensive plan (Metro Plan; update 2004) land uses and that it provide for a transportation
system that accommodates the expected growth in population and employment that will result
from implementation of the land use plan. Development of the 2035 TSP was guided by ORS
197.712 and the Oregon Department of Land Conservation and Development (DLCD)
Transportation Planning Rule (TPR) (Oregon Administrative Rules [OAR] 660 -012).
The TPR requires that the 2035 TSP include provisions for safe and efficient travel by all travel
modes. City prioritization of enhancing the walking, biking and transit systems is essential to the
implementation of the TSP. The TPR also requires that local jurisdictions adopt land use and
subdivision ordinance amendments to protect transportation facilities and to provide bicycle
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and pedestrian facilities between residential, commercial,
and employment /institutional areas. It is further required
that local communities coordinate their respective plans
with the applicable county, regional, and state
transportation plans.
The 2035 TSP is further consistent with the Central Lane
2035 Regional Transportation Plan (RTP), which is a
federally required plan that provides a regional
framework for transportation planning, coordination, and
investment. The Springfield 2035 TSP has been developed
in close coordination with the 2035 RTP update process to
ensure consistency at the state and regional levels. A
memorandum summarizing how the 2035 TSP and
implementing ordinances are compliant with the TPR and
other regulatory requirements is provided in Volume 3,
Appendix A: Plan and policies review.
Facilities
Four major regional transportation facilities are located
within or adjacent to the City of Springfield: 1 -5, OR 126
Business Route, Pioneer Parkway (between South A Street
and OR 126), and OR 126 Expressway. These are state
highways under the jurisdiction of the Oregon
Department of Transportation (ODOT) and subject to
State operational and design requirements. Plans for
improvements to the highways and interchanges, as well
as changes to adjacent land uses and access points must
be developed in a manner consistent with ODOT plans,
guidelines, and standards.
Related plans and policies
City of Springfield staff reviewed relevant plans and
policies in current state, regional, and local documents
EXHIBIT B, Page 43 of 92
Non -City facility implications
This Plan, including the Plan's
project lists, does not have any
legal or regulatory effect on right -
of -way or transportation facilities
that the City does not own.
However, the planning process
evaluated some facilities that are
not under the City's jurisdiction. As
such, the Plan includes proposed
improvements to non -City
facilities. Without additional
action by the governmental entity
that owns the subject facility or
right -of -way (i.e., Lane County)
any,project in this Plan that
involves a non -City facility is merely
a recommendation.
As in most facility planning efforts,
moving towards and planning for,
a well connected network
depends on the cooperation of
multiple jurisdictions; the Plan is
intended to facilitate discussions
between the City and its
governmental partners as we work
together to achieve a well -
connected network. The Plan,
however, does not obligate its
governmental partners to take any
action or construct any projects.
that could affect transportation planning in Springfield.
This review highlighted guidelines and procedures relevant to the development of the 2035
TSP and provided a baseline to begin forming policies for the 2035 TSP. In addition to reviewing
relevant state and regional plans such as TransPlan and the Metro Plan (2004 update), the
following local plans (including refinement plans) were reviewed:
Local
• Lane County Transportation Plan (2004)
• Springfield Bicycle Plan (1998)
• Springfield Capital Improvement Program (2014 -2018 - updated annually)
• Springfield Development Code (2010 -2013 -periodically updated)
• Willomolane Park and Recreation Plan (2013)
EXHIBIT B, Page 44 of 92
Refinement plans
• East Kelly Butte Neighborhood (1982)
• East Main (1988)
• Gateway (1995)
• Glenwood Refinement Plan (1999)
• Glenwood Refinement Plan Phase I Update (2012)
• Mid - Springfield (1986)
• 0 Street (1987)
• Springfield Downtown District Urban Design Plan and Implementation Strategy (2010)
A full list of applicable plans, goals, and policies, including the ones listed above, are in
Volume 3, Appendix A: Plan and policies review. Highlights of regional plans are listed below.
Central Lane MPO Regional Transportation Plan (RTP): 2011
The Central Lane MPO RTP meets federal requirements for the plan area and guides regional
transportation system planning and agency coordination. The RTP currently has a planning
horizon that goes beyond the planning horizons of the Metro Plan and TransPlon. The RTP is
updated every four years. The Springfield 2035 TSP must be consistent with the most currently
updated RTP.
Central Lane MPO Regional Transportation System Plan (RSTP): In process
The Central Lane MPO RSTP will update the policies, projects, and strategies that guide
transportation planning and investments within the Central Lane MPO, through 2031 (a new plan
building from Trans Plan and serving the some regional purpose). The RTSP will be updated after
Eugene, Coburg, and Springfield complete their TSP processes.
Lane County Transportation System Plan (TSP): 2004
The 2004 Lane County TSP is an update to the County's 1980 Transportation Plan. The TSP is a
20 -year planning document used to facilitate the orderly and efficient management of the
County's transportation system. The Lane County TSP is a component of the County's
Comprehensive Plan, which includes all City- adopted comprehensive plans and transportation
system plans (e.g., TransPlan). The County TSP looks to the TransPlan, until the Springfield TSP is
adopted, when decisions are needed regarding transportation facilities within the Springfield
UGB. County roads within the UGB must comply with the Lane County TSP and applicable Lane
County rules, regulations, and standards.
Eugene- SpringPeld Metropolitan Area General Plan (Metro Plan): 2004 update
Metro Plan serves as the comprehensive plan for both Eugene and Springfield. The 2004 Metro
Plan is the third update since 1990. The plan serves as Eugene, Springfield, and metropolitan
Lane County's long range policy document; guiding land use for all three jurisdictions within the
plan's boundaries. Metro Plan addresses all applicable statewide planning goals either in the
plan itself or through supporting facility or master plans such as local TSPs and parks plans. To
comply with state regulations, Metro Plan provides a 20 -year land supply. After Eugene and
Springfield created separate UGBs, each city is now creating separate, city -wide refinement
plans to Metro Plan.
Metro Plan outlines regional goals, findings, objectives, and policies. Those policies with the most
impact on Springfield's overall transportation system are listed in Volume 3, Appendix A: Plan
and policies review. These policies are grouped into three sections: Growth Management,
Transportation, and Citizen Involvement.
Eugene - Springfield Metropolitan Area Transportation Plan (fransPlan): amended
2002
Because TransPlon served as the locally adopted TSP for Springfield during the creation of the
2035 TSP, the City analyzed all of its policies as part of the 2035 TSP. Upon adoption, the 2035 TSP
replaces TronsPlon as the City's TSP. For now, Trans Plan is in place until a new plan is approved
by the local jurisdictions.
TronsPlon is the transportation element of Metro Plan. TransPlon is a system plan that guides local
and regional transportation system planning and development in the Eugene - Springfield
metropolitan area. TronsPlon also serves as the City's facilities plan (or TSP) to identify projects
needed to meet transportation needs over a 20 -year planning horizon, while addressing
transportation issues and proposing changes that can contribute to improvements in the
region's quality of life and economic vitality. In addition to roadway facilities, TronsPlon also calls
for significant increases in the amount and convenience of transit service, bikeways, sidewalks,
and an expansion of the existing program of transportation demand management (TDM) travel
incentives. TransPlon is a jointly adopted document that serves as a local transportation system
plan for both Springfield and Eugene. 2007 legislation allowed the two cities to develop
separate UGBs; Springfield's was adopted in 2011.
The TronsPlan theme, 'Improving Our Transportation Choices,' reflects the plan's focus to provide
citizens with a range of safe, convenient, and efficient transportation options characterized by
smooth connections between modes. TransPlon strives to support the need to diversify
transportation choices, while avoiding reliance on any one transportation mode or method of
managing the transportation system. TransPlan establishes the framework upon which all public
agencies can make consistent and coordinated planning decisions regarding inter- and intra-
jurisdictional transportation.
Coordination with plans and infrastructure
The planning efforts noted above and other future efforts by neighboring jurisdictions may have
an impact on Springfield's transportation system. In the future, the City of Springfield will
coordinate and collaborate with other planning efforts, as appropriate, to ensure integration of
any recommended transportation related projects with the future vision for the City.
Coordinating these plans with implementation of other 2035 TSP elements can provide
opportunities for additional efficiencies in funding, construction, and system impacts during
project construction.
To the extent possible, the City of Springfield will coordinate transportation system infrastructure
improvements with other types of infrastructure projects within the City (e.g., water, storm
drainage, sewer, power, and other utilities) to save costs and minimize disruptions to residents,
businesses, and travelers.
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EXHIBIT B, Page 46 of 92
Guiding principles for street design and operations
A number of additional transportation related elements will guide development review and
project development in Springfield in the future. These elements are discussed in more detail
below:
Functional classification of roadways
• Street design standards
• Truck routes
• Intersection performance standards
• Access management guidelines
• Connectivity guidelines
• Transit service
• Parking
• Safety
Functional classification of roadways
Functional classification defines a roadway's primary role in terms of providing mobility and
access for all modes of travel. Mobility refers to the actual physical travel that occurs between
destinations like home, shopping, and work, whereas access is the ability for travelers to access
those land uses to meet daily needs. For example, a freeway provides the highest level of
mobility (high speeds) with access limited to interchange ramps that may be a mile apart or
more. A neighborhood street is on the opposite end of the spectrum, providing the highest level
of access (driveways accessing every property) and with very low mobility (low traffic volumes
and speeds).
An individual street's classification directs the design and management of the roadway,
including right -of -way needs, the number of travel lanes, bicycle and pedestrian facilities, on-
street parking, and access management guidance. Figure
for each roadway in Springfield.
The functional classification system for streets within
Springfield is generally guided by this TSP, the Regional
Transportation Plan (RTP), the Oregon Highway Plan
(OHP), and the City of Springfield Development Code
(see Figure 2). A general description of functional
classifications is provided below:
Interstate highways: These facilities provide for
travel among major cities, regions of the state,
and areas outside the state. The primary objective
for interstate highways is mobility. Within urban
areas such as Springfield, the secondary function
of interstate highways is to provide for regional trip
- making.
Common terms
Access - the ability for travelers to
enter /leave land uses and
destinations
Mobility - actual physical travel
that occurs between destinations
Functional classification - defines a
roadway's primary role in terms of
providing mobility and access for
all modes of travel, directing the
design and management of the
roadway
EXHIBIT B, Page 47 of 92
• Major arterials: These facilities are intended to carry high volumes of traffic and primarily
provide mobility and not access. Major arterials provide continuity for intercity traffic
through the urban area and are often multi -lane highway facilities.
• Minor arterials: These facilities interconnect with and augment the major arterial system
and accommodate trips of somewhat shorter length. Minor arterials interconnect
residential, shopping, employment, and recreational activities within the community.
• Major and minor collectors: These streets provide both land access and movement
within residential, commercial, and industrial areas. They gather traffic from local streets
and serve as connectors to arterials.
• Local streets: These facilities have the primary function of providing access to adjacent
land uses. Local streets often have several driveways along them and are not intended
for long- distance trips. Through traffic on local streets is managed by street design. They
also often serve as ideal bicycle and pedestrian routes given their often low traffic
volumes.
• Alleys: These provide local access and services for residences and businesses.
The City of Springfield roadway functional classification system is intended to organize the
roadway network as a balanced system that provides a hierarchy of mobility and access to,
through and between different types of land uses. Some of the factors that are considered in
setting a roadway's functional class are land use patterns, roadway volumes, density of
accesses along a particular segment, the mix and amounts,of different modes on a typical
segment (i.e. freight, bikes), safety trends, traffic speeds, intersection spacing distances and
intersection types, and right of way availability and constraints. Over time, as the community
continues to grows and mature, the functional classification should periodically be revisited to
insure that particular classifications are most appropriate to current and forecast conditions.
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Street design standards
Street design standards provide information on how streets "look and feel" These standards
indicate how existing streets can be modified and new streets can be constructed to
accommodate the needs of people with disabilities, riding bicycles, riding transit, walking, and
driving automobiles and freight vehicles. Chapter 2 of the 2035 TSP, Policy, 3.3, Action 1 states
that citywide street standards will be updated subsequent to the 2035 TSP. The goals, policies,
and action items in the 2035 TSP provide overall guidance for the street standards update.
The City should consider the following as part of the street standards update:
• Travel lanes: When arterial and collector streets are improved to City standards, travel
and turn lanes should be consistent with best practices at the time of improvements
unless flexibility is required to minimize impacts or better accommodate expected users.
• Bicycle and pedestrian facilities: As discussed in Chapter 4, bicycle facilities on arterials
and collectors can be constructed as bike lanes, buffered bike lanes, shared lanes,
or cycle- tracks, depending on context. Minimum widths of bicycle lanes and multi -use
paths should use best practice standards found in National Association of City
Transportation Officials (NACTO) Urban Bikeway Design Guide, AASHTO, and the Oregon
Bike and Pedestrian Plan.
• Landscaping: Both collectors and
arterials may include landscaped
medians and /or street trees.
• Green streets: Green street
treatments, such as bioswales, may
also be used in place of the
landscaping strip or tree wells.
Bioswales can help slow the flow of
siormwater, ensuring that drainage
systems are not overwhelmed during heavy rain, which can result in improved statewide
water quality. In many areas of Springfield, landscaping strips may be replaced with
swales that will absorb stormwater runoff.
• Context sensitive variation: The street sections should vary depending on whether they
are located in a mixed use, higher density, or more suburban part of Springfield. Some
variations may be allowed, subject to City Traffic Engineer and City Engineer approval,
depending on case specific issues such as topography and environmental constraints.
Truck routes
Both TransPlon and the Oregon Transportation Plan (OTP) recognize the role that an efficient
and reliable transportation system plays in supporting the region's economy, growth, and quality
of life. Within the Eugene - Springfield area, highways, city streets, air, pipeline, and railways
provide freight mobility. Each of these modes must function together to ensure the efficient and
timely movement of freight to, within, and through the community.
Within Springfield, "through" truck freight travel occurs primarily on 1 -5 and OR 126 Expressway.
Both OR 126 Expressway and 1 -5 have federal truck route designations and are identified as state
freight routes. For 1 -5, both the federal and state designations apply throughout the UGB. For
OR 126, the federal designation applies throughout the UGB and the state freight designation is
applicable from 1 -5 to the intersection with Main Street. The state and federal freight
designations necessitate more stringent design and mobility standards for these facilities to
accommodate goods movement.
Within Springfield, truck freight travel occurs primarily on the designated City truck routes. These
local truck routes are shown in figure 3.
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Intersection performance standards
Although most intersections in Springfield are under the City's jurisdiction, many of the larger
volume intersections are under state jurisdiction. Some unincorporated area intersections are
under Lane County jurisdiction, as are some intersections within the City that are at least partially
under the County's jurisdiction (e.g., Glenwood Boulevard and 17 +h Avenue).
Policy 2.9 of this TSP (Chapter 2) notes that the City of Springfield will use motor vehicle LOS
standards to evaluate for acceptable and reliable performance on the roadway system. Lane
County facilities in Springfield use the volume to capacity ratio (v /c) as the peak hour
performance standard for evaluation. LOS analysis may also be required pursuant to Lane
Code 15.696.. Under peak hour traffic conditions, acceptable and reliable performance is
defined as LOS D.
The Oregon Highway Plan (OHP) outlines specific performance measures to be maintained
along ODOT facilities in the Springfield metropolitan area as part of adopted Highway Mobility
Standards. These standards are aimed at maintaining mobility along important road corridors
and vary according to functional classification, location, posted speed, and role within the
National Highway System (NHS)'. The mobility standards are based on a calculated volume to
capacity (v /c) ratio.
Per the OHP, the following intersection performance measures are applicable for facilities within
Springfield (subject to change with any future ODOT planning effort):
• For 1 -5, v/c ratio of 0.80 because of its classification as an interstate facility within a
Metropolitan Planning Organization (MPO). For the 1 -5 ramp terminals, the applicable v/c
ratio is dependent on the crossroad standard. If the crossroad requires a v/c less than
0.85, then the crossroad dictates the ramp terminal standard; otherwise the applicable
ramp terminal standard is a v/c of 0.85.
• For OR 126 Expressway, v/c of 0.80 given its classification as a statewide Expressway
within a MPO.
• For the OR 126 ramp termini and OR 126 Business (McKenzie Highway, ODOT Highway No.
15, Main Street), v/c ratio of 0.85.
For OR 528 (Pioneer Parkway) and OR 225 (McVay Highway), v/c ratio of 0.90 given their
classification as District Highways within a MPO.
The highway standards above are for signalized intersection performance standards. At stop -
controlled intersections, the appropriate mobility standard is based on the classification of the
intersecting roadway. Recognizing that some intersections on the state system will fail to meet
Oregon Highway Plan targets, the City will need to request alternate mobility targets from the
Oregon Transportation Commission.
Access management guidelines
The City of Springfield's access management standards are listed in the City's Engineering and
Design Standards and Procedures Manual (EDPSM). The Springfield Development Code identifies
the spacing standards for roadways. Driveway access spacing is measured from the center of
each driveway to the center of the upstream or downstream driveway or intersection on one
side of the roadway. These ideal standards can be difficult to achieve on roadways with existing
development.
Lane County Code also outlines access regulations for roads under the County's jurisdiction
(Chapter 15.130 through 15.140). The OHP includes guidance and requirements for all ODOT
facilities within the City, including OR 126 Business Route (i.e. Main Street); OR 126 Expressway;
Pioneer Parkway (OR 528); McVay Highway; and Franklin Boulevard (McKenzie Highway).
Connectivity guidelines
In order to promote the development of a well -
connected transportation network while
maintaining desirable neighborhood
characteristics, the following strategies can be
used for new development within the City of
Springfield: ,
• Where feasible, new developments
should include a highly connected
network of local streets to provide direct
access to local destinations, such as
schools, parks, and neighborhood
amenities.
• The City should limit the use of cul -de-
sacs and dead -end streets in new
developments, except where
topographical or natural features
constraints make connections infeasible.
• New developments should connect to
the stub streets of prior developments to
provide continuous streets and include
stub streets for connection with future
development.
The City can design block size in new
developments to maximize connectivity.
Smaller block sizes, from 250 -500 feet,
provide better access for all modes.
Increased connectivity in existing areas can
occur over time. The following strategies can be
implemented to enhance connectivity in
currently developed areas:
• In updating refinement plans or creating
corridor plans in Springfield, the City
should consider local street connectivity
as a primary goal in the development of
the street network.
Common terms
Access - the ability for travelers to
access /leave destinations, like a driveway
into a business
Access management- a set of measures
regulating access to streets, roads, and
highways from public roads and private
driveways
Access points - driveways, median
openings, interchanges, roundabouts, and
street connections to a roadway
Capacity- the amount of vehicles that a
street can handle
Conflict points -while there may be
crashes (or near misses) anywhere for cars,
bikes, pedestrians, and transit, these
conflict points are more dangerous
sections of the road
Functional classification - defines a
roadway's primary role in terms of
providing mobility and access for modes of
travel, directing the design and
management of the roadway
Mobility - actual physical travel that occurs
between destinations
Stub streets - dead -end or cul -de -sac
streets that do not provide connections to
the rest of the transportation system
Upstream /Downstream - the direction of
travel on the road either in the some
direction (upstream) or opposite direction
(downstream)
Multi -use paths and sidewalk
connections should be used as a way to
provide additional connectivity for pedestrians and bicyclists.
• The City should consider using traffic calming strategies in existing residential areas to
minimize traffic impacts.
EXHIBIT B, Page 56 of 92
IF In existing neighborhoods with cul -de -sac or dead end streets, the City should work with
property owners to establish right -of -way easements for pedestrian and bicycle
connections, prioritizing completion of pedestrian and bicycle routes to destinations (see
Chapter 4 for more information on these treatments).
Transit service
Transit plays an important role in providing a balanced transportation system within the City.
Transit can provide an alternative to private automobile travel for distances too for to walk or
bike and for transportation - disadvantaged travelers. Existing transit service in the City of
Springfield is limited to areas north of Main Street. Lane Transit District (LTD) provides public transit
service in Springfield and throughout the region.
The City of Springfield will continue to work with LTD to identify suitable transit corridors as
development and land use densities create demand. Potential corridors for future transit
improvements may include:
• Centennial Boulevard - 1 -5 to Mohawk Boulevard
• Franklin Boulevard /Main Street /South A Street to OR 126 /Main Street
• Franklin Boulevard - McVay Highway to 30th Ave. (a portion of this route is outside the
Springfield UGB)
• Mohawk Boulevard - Centennial Boulevard to 19th Street
• Morcolo Road - 19th to 28th
• Olympic - Mohawk to 42nd Street
• 32nd /Jasper Road to Main Street - South 32nd /Jasper Road /Bob Straub Parkway /Main
Street
To support convenient transit service, future development of potential transit corridors must
consider transit - supportive land -use, connectivity, and streetscape features, such as:
• Residential density of at least 4 -5 dwelling units per acre to provide enough ridership to
support local transit service or densities of about 15 units per acre to support frequent
service
• Commercial activity nodes with a mix of uses to provide access to multiple amenities
within walking distance of a single transit stop
• A highly connected street network that enables people to easily access transit stops on
foot or by bicycle
IF Streetscaping with comfortable space for people on foot, bicycle, and waiting at
transit stop locations, including wide sidewalks, bike lanes or cycle tracks, street trees,
and benches or shelters
LTD bases system development on a number of considerations, with service priority focused on
affordable housing, medical service centers, major employment centers, and major commercial
activity centers. Routing is also based on dense housing areas and concentrations of student
populations. LTD strives to respond to opportunities depending on resources available.
Planned transit improvements in Springfield include the development of the Frequent Transit
Network (FTN). Springfield, along with its regional partners, is developing the FTN through the
Regional Transportation System Plan (RTSP) process. The FTN consists of average frequent service
of 15 minutes or better all day long. The purpose of the FTN is to use it as a policy tool to define
SPRINGFIELD _
OY[60N
EXHIBIT B, Page 57 of 92 ,
corridors where this level of service can be expected in the future as development occurs.
Investment in the FTN requires the following set of principles to be in place:
• Residential and commercial development along a corridor achieves the minimum
density required to support high capacity transit.
• Street design and City ordinances permit the operation of high capacity transit, as well
as maximizing pedestrian and bicycle access to transit stations along the corridor.
• Funding sources for high capacity transit grow at a rate to permit investment.
Chapter 2, goals and policies, provides further explanation of the FTN (Policy 2.1, 2.3, 2.5, 3.5).
Parking
Cities set policies related to parking requirements for new developments,
as well as for public parking on city streets. In order to allow
developments that encourage multi -modal transportation, cities can set
parking maximums instead of minimums and /or allow for shared parking
between uses. Goals and policies in Chapter 2 of this TSP provide
guidance and direction for parking requirements in Springfield, such as
providing guidance to help reduce off - street parking needs in Springfield
through a combination of shared, leased, and new off - street parking
facilities and TDM programs (Policy 2.6 and 2.7).
In addition to vehicular parking needs, the Springfield Development
Code includes provisions to ensure that large parking lots include
adequate pedestrian facilities to provide safe, attractive connections to
buildings and adjacent sidewalks. The City of Springfield also recently
participated in a Regional Bike Parking Study with Point2point Solutions,
LTD, and City of Eugene to identify bike parking needs along major transit
routes, for public buildings (i.e. the Springfield Public Library and City
Hall), and major employment areas. The City is working with its agency
partners to implement the recommendations of this study.
Parking plays a large role in transportation demand management and effective management
of parking resources can encourage use of non - single occupancy vehicle (SOV) modes. Cities
can tailor policies to charge for public parking in certain areas and impose time limits on street
parking in retail centers. Cities can also monitor public parking supply and utilization to inform
future parking strategies. The City of Springfield has started moving in this direction, with the 2010
Downtown Parking Study recommending various time -stay requirements in the Downtown core
area. At the time of adoption of this TSP, the City is moving toward implementation of that study
(Policy 2.6 from Chapter 2 of this TSP). As development in Springfield continues to intensify, the
City may consider additional parking management strategies that would be consistent with
transportation and land use policies in the Metro Pion.
Safety
The ability to move safely throughout the City on foot, by bike, and in a vehicle is critical to
providing a well - planned and designed transportation system for the future of Springfield.
As part of 2035 TSP development, safety and operational information was collected at
44 specific locations throughout the City (Volume 3, Appendix D: 20 -year Needs Analyses). This
data was supplemented with information about the operational and safety performance at
intersections along Gateway Street, Main Street and OR 126, as summarized in the OR 126 Main
SPRINGFIELD
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EXHIBIT B, Page 58 of 92
Street Safety Study, the 1- 5 1Beltline Interchange Area Management Plan, and the Draft OR 126
Expressway Management Plan.
The Main Street (OR 1268) corridor has been a focal point of safety concerns for many years.
Because of the continued occurrence of pedestrian /vehicle collisions between 20th Street and
73rd Street (including nine pedestrian fatalities within the last 10 years), there is particular public
concern for pedestrian safety. The 2011 OR 126 Main Street Safety Study completed by ODOT,
City of Springfield, and LTD outlines multiple strategies to improve safety along this vital
transportation and land use corridor. Pedestrian safety improvements such as mid -block
pedestrian crossings, vehicular speed reduction, and improved street lighting were just some of
the many recommendations from the study. The City of Springfield is working closely with ODOT
to implement the study recommendations.
In addition to the Main Street safety issues, analysis of recent crash history at key
collector /arterial intersections throughout Springfield helped identify potential improvement
projects for the 2035 TSP. The City of Springfield will continue to monitor the safety of the system
and will plan and prioritize transportation system improvements with safety as a priority.
Multi -modal improvement projects
Over the next 20 years, a variety of multi -modal transportation improvement projects can
support the continued economic development and vitality of the City of Springfield. These
improvements are intended to enhance the movement of people, goods, -and services within
the City and the region, as well as provide people of all ages and abilities with a variety of ways
to access their neighborhoods, schools, places of work, shopping, and recreational
opportunities.
The recommended projects vary in terms of physical size, geographic area, type of users, and
project cost but all work together to meet the vision of the community as expressed through its
plans and policies. The actual construction timing of the projects will depend on future
development within the City and region, the ability to secure funding through partnerships with
other agencies and with the private sector, and overall community priorities.
Some of the projects have been identified to support key redevelopment opportunity areas
within the City, such as the Glenwood Riverfront Area, Downtown, Gateway, and Jasper - Natron.
Other projects serve more localized needs such as specific intersections or segments of a multi-
use path. Over the next 20 to 40 years, the implementation of these projects will help support the
overall economic health and well -being of Springfield.
Within the 2035 TSP, improvement projects have been divided into the following categories
(project lists):
20 -year projects (the 2035 TSP planning horizon): projects needed to serve expected
transportation growth over the next 20 years. These projects have planning -level cost
estimates included in this Plan.
- Priority projects: Higher -cost and scale roadway, urban standards, and
pedestrian /bicycle projects that would generally require additional right -of -way
(Table 3, Figure 4).
- Opportunity projects: Lower -cost and scale roadway, urban standards, and
pedestrian /bicycle projects that would generally not require additional right -of-
way and the City could implement as opportunities arise (Table 4, Figure 5).
EXHIBIT B, Page 59 of 92
As Development Occurs projects: Roadway and pedestrian /bicycle projects that
the City would generally implement through a partnership with the City, other
agencies, and /or private enterprise to support new development or
redevelopment (Table 5, Figure 6).
• Beyond 20 -year projects: projects that may be constructed beyond the 20 year planning
horizon. These projects do not have planning -level cost estimates included in this Plan
(Table 6, Figure 7).
• Study projects: Projects that need further study and refinement (Table 7, Figure 8).
• Frequent Transit Network (FTN) projects: Frequent transit projects that the City and LTD
have developed through the ongoing Regional Transportation System Plan process
(Table 8, Figures 8 and 9).
Members of the community, the Stakeholder Advisory Committee (SAC), and Technical Advisory
Committee (TAC) screened and evaluated the projects included in each of these categories.
The process used to identify, screen, and evaluate the projects is described in Volume 3,
Appendix E: Alternative evaluation process.
Approximately 136 projects comprise the project lists. These projects address existing and future
multi -modal transportation system deficiencies and can serve as direction for future
transportation investments. Many of these projects are necessary under current conditions, while
the list identifies others to address the transportation needs that will become more important as
the community grows. The project lists may identify proposed changes to the transportation
system or may recommend further study related to topography, environmental, right -of -way,
and construction constraints; value engineering; and practical design review to identify specific
treatments and alignments. New facilities and roadway alignments, as well as major upgrades,
will require City Council review and approval before construction.
The projects are listed (Tables 3 to 5) and mapped by category (Figures 4 to 6). In adopting the
2035 TSP project list, the City's objective is to be in the best position to build or implement
projects when the timing is right and funding is available. Examples of this type of opportunity
are changes to federal and state funding and policy priorities, public - private partnerships,
agency partnerships, work on subsurface infrastructure systems that leverage a transportation
project, and City development priorities that may change over time. This approach to
transportation investments will allow the City the greatest degree of efficiency and creativity in
making transportation investment decisions. More information about the cost estimates is
provided in Volume 2, Appendix II: Detailed cost estimates and funding analysis.
Within the tables and figures, each project list is subdivided into the following categories:
• Roadway - these projects generally are needed to meet capacity needs or to serve
connectivity for multi -modal travel. This project category includes the construction of a
new collector or arterial to City standards and the modification of existing streets and
intersections. All new construction would incorporate bicycle facilities, sidewalks, vehicle
travel lanes, planter strips (where appropriate), and other street design features
commensurate with the intended functional classification of the street. To view only the
roadway improvements see Figure 10.
• Bicycle and pedestrian - these projects are needed to improve pedestrian and bicycle
connectivity between primary destinations within the City or to fill in gaps in the off - street
trail system; coordination with Willamalane Park and Recreation District will be important
to implementing these projects. To see only bike and pedestrian projects refer to Figure
11.
SPRINGFIELD
Mao.
Urban standards - these projects include the modification of existing streets to include
facilities for pedestrians, cyclists, and motorists. These projects will help contribute to a
safe and efficient multi -modal environment in the future.
20 -year projects
TABLE 3
Priority projects in the 20 -year project list
R -3
Game Farm Road - East to International Way
$6,300,000
(Construct a new collector with a three -lane cross- section with sidewalks and bicycle facilities)
R -9
Laura Street to Pioneer Parkway
$3,300,000
(Construct a new collector with a three -lane cross - section with sidewalks and bicycle facilities
in or near the EWEB powerline corridor with a right -in /right -out intersection at Pioneer
Parkway, coordinate with PB -7) -
R -10
Q Street/Laura Street and Laura Street Interchange Area
$1,600,000
(Construct traffic controls at Laura StreeUO Street intersection, extend the second westbound
'
through- lane through the Laura Street intersection, and construct a westbound right -turn lane;
coordinate with S -3 and PB -7; conduct study [S -3] prior to implementing. project)
R -13
Franklin Boulevard Multi -modal Improvements
$35,000,000'
(Construct multi -modal improvements on Franklin Boulevard, from 1 -5 to the railroad tracks
south of the Franklin Boulevard /McVay Highway intersection, and construct a roundabout at
the Franklin Boulevard /Glenwood Boulevard intersection)
R -14
Franklin Boulevard /McVay Highway Multi -lane Roundabout
$7,000,000
(Construct a multi -lane roundabout)
R -19
McVay Highway and East 191h Avenue
$2,500,000
(Construct a two -lane roundabout)
R -20
McVay Highway - East 191h Avenue to 1 -5
$47,000,000
(Construct a two- or three -lane cross - section as needed with sidewalks, bicycle facilities, and
'
transit facilities consistent with Main Street/McVay Highway Transit Feasibility study and
project T -3)
R -34
Centennial Boulevard /Industrial Avenue - 281h Street to 351h Street
$9,500,000
(Extend Centennial Boulevard /Industrial Avenue with a three -lane cross - section with
sidewalks and bicycle facilities)
R -36
42nd Street - Marcola Road to Railroad Tracks
$6,000,000
(Modify 42nd Street to a three -lane cross - section and traffic controls at Marcola Road and the
'
OR 126 westbound ramps)
-
R -39
Extend South 481h Street to Daisy Street
$3,200,000
(Extend South 48� Street with a three -lane cross - section with sidewalks and bicycle facilities)
R-40
OR 126152nd Street Interchange Improvements
$40,000,0002
-
(Construct a grade- separated interchange on OR 126 at 52nd Street with ramps and traffic
controls at ramp terminals on 52nd Street consistent with the Interchange Area Management
Plan)
R -41
South 541h Street - Main Street to Daisy Street
$960,000
(Construct a new two -lane collector with sidewalks and bicycle facilities)
R-43
OR 1261Main Street Interchange Improvements
$50,000,0002
(Construct a grade- separated interchange with ramps and traffic control at ramp terminals on
Main Street consistent with the Interchange Area Management Plan; needs further study)
EXHIBIT B, Page 61 of 92
R -50
GatewaylBeltline Phase 2 Project
$12,000,000
(As defined in the 2003 Revised Environmental Assessment including Kruse /Hutton couplet,
Gateway Road improvements)
- ... ..'
@3M
US -1
Game Farm Road South - Mallard Avenue to Harlow Road
$4,100,000
(Modify and expand Game Farm Road South with a cross - section to include bicycle facilities)
US -3
Aspen Street - Centennial Boulevard to West D Street
$2,800,000
(Change Aspen Street to a three -lane cross - section with sidewalks and bicycle facilities)
US-4 .
2161 Street - D Street to Main Street
$2,300,000
(Modify 21s` Street to a three -lane cross - section with sidewalks and bicycle facilities)
US -5
2811 Street - Centennial Boulevard to Main Street
$4,300,000
(Change 280 Street to include sidewalks and bicycle facilities)
US -6
South 281h Street - Main Street to South F Street
$6,000,000
(Modify South 28th Street to a three -lane cross - section with sidewalks and bicycle facilities)
US -11
Clearwater Lane - south of Jasper Road within UGB -
$470,000
(Modify and expand Clearwater Lane with a cross - section to include sidewalks and bicycle
facilities)
US -14
Thurston Road - Weaver Road to UGB
$4,800,000
(Change Thurston Road to a three -lane cross - section with sidewalks and bicycle facilities)
PB -2
Flamingo Avenue to Gateway Street
$70,000
(Construct a 12 -foot wide path west from Flamingo Avenue to Gateway Street south of Game
Bird Park)
PBA7
Glenwood Area Willamette River Path — 1 -5 to Willamette River bridges
$2,500,000
(Construct a new multi -use 12 -foot wide path from the end of the existing path, east of 1 -5 to
the Willamette River bridges)
PS -18
Glenwood Area Willamette River Path — Willamette River Bridges to UGB
$2,900,000
(Construct a new multi -use 12 -foot wide path from the Willamette River bridges to the UGB)
PB -19
Bridge between Downtown and Glenwood or modify Willamette River Bridges
$10,300,000
(Construct a new pedestrian and bicycle bridge between Downtown Springfield and
Glenwood, or modify the existing Willamette River bridges)
PB -29
Mill Race Path
$7,100,000
(Construct a new multi -use 12 -foot wide path from South 2nd Street to South 32nd Street/UGB)
PB -32
McKenzie River Path - McKenzie Levee Path to 52nd Street
$3,700,000
(Construct a new multi -use 12 -foot wide path from the existing McKenzie Levee path at
42nd Street to 52nd Street)
PB -37
Booth Kelly Road - South 281h Street to South 491h Place
$2,817,000
(Construct a new multi -use 12 -foot wide path from South 28' Street to South 49' Place )
PB46
Haul Road path - South 491h Place to UGB
$3,600,000
(Construct anew multi -use 12 -foot wide path from South 4911 Place to the UGB)
Cost developed as part of the current Franklin Boulevard project development process.
z Cost developed as part of the Regional Transportation Plan.
EXHIBIT B, Page 62 of 92
TABLE 4
Opportunity projects in the 20 -year project list
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R -2
Gateway Road /international Way to UGB
$950,000
(Construct five -lane cross - section consistent with 2003 Revised Environmental Assessment)
R -11
51M1 Street/Q Street
$550,000
(Construct right -turn lanes to the eastbound and northbound approaches or a roundabout)
R -30
Marcola- Road /191h Street
$320,000
(Construct right -turn lane on westbound approach or roundabout)
R -31
2811, StreeUMarcola Road
$1,900,000
(Construct a roundabout)
R -32
42nd StreeUMarcola Road
$2,800,000
(Construct a roundabout)
R -33
Centennial Boulevard/28th Street
$1,800,000
(Construct a roundabout)
R -38
South 42nd StreetlDaisy Street
$1,800,000
(Construct a traffic signal or a roundabout)
R-48
Mountaingate Drive /Main Street
$900,000
(Install a new traffic signal)
PB -3
• Oakdale Street/Pheasant StreeUet.al. - Game Farm Road to Gateway Road
$80,000
(Add signing and striping for bicycle facilities)
PB -5
Hartman Lane /Don Street - south of Harlow Road to OR 126
$180,000
(Add signing and striping for bicycle facilities and construct sidewalks to fill gaps)
PB -8
Hayden Bridge Way /Grovedale Drive, Hayden Bridge Way /3'd Street, Hayden Bridge
$260,000
Way /Castle Drive
(Add a crosswalk with a rapid rectangular Flashing beacon)
PB -9
EWEB Path crossings of 2nd Street, 91h Street, 1111, Street, Rose Blossom Drive, Debra
$50,000
Street, 151h Street, W Street, and 3511, Street
(Improve path crossings to emphasize path priority and to improve safety)
PB -10
2nd Street/Q Street
$90,000
(Add a crosswalk with a rapid rectangular flashing beacon)
PB -13
Anderson Lane - By -Gully path to Centennial Boulevard
$90,000
(Add signing and striping on Anderson Street and Quinalt Street for bicycle facilities and
construct 12 -foot wide multi -use path between Anderson Lane and Quinalt Street)
PB -14
Rainbow Drive - Centennial Boulevard to West D Street
$60,000
(Restripe for bicycle facilities with signing)
PB -15
West D - Mill Street to D Street Path
_ $10,000
(Add bicycle facility signing and striping)
PS -16
West D - Aspen Street to D Street Path
$190,000
(Add bicycle facility signing and striping. construct sidewalks to fill gaps)
PB -20
Mill Street - Centennial to Main Street, south of Main Street to Mill Race Park
$90,000
(Restripe for bicycle facilities with signing)
PB -21
Pioneer Parkway at D, E, and F Streets
$80,000
.
(Add crosswalks on Pioneer Parkway with signage)
ErFINGnEl0 _
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PB -22
51h Street/Centennial Boulevard Intersection
$560,000
(Add bicycle facilities through,the intersection area)
PB -23
51h Street - Centennial Boulevard to A Street
$50,000
(Add bicycle facility signing and striping)
PB -24
D, E, or F Streets from 51h Street to 28th Street
$190,000
(Add bicycle facility signing and striping)
PB -25
51h Street/D Street
$10,000
(Add bicycle facility signing and striping to improve visibility)
PB -26
A Street - 51h Street to 10th Street
$40,000
(Restripe for bicycle facilities with signing)
PB -30
331d Street - V Street to EWEB Path
$10,000
(Add shared -use signing and striping)
PB -33
Main Street - 341h Street to 35th Street
$90,000
(Add a mid -block crosswalk with rapid rectangular flashing beacon)
PB -34
Pedestrian crossing improvement on Main Street/381h Street
$90,000
(Add a mid -block crosswalk with a rapid rectangular flashing beacon)
PB -35
Main Street/ 41st Street
$90,000
(Add a mid -block crosswalk with a rapid rectangular flashing beacon)
PB -36
Virginia Avenue and Daisy Street - South 32nd Street to Bob Straub Parkway
$130,000
(Add bicycle facility signing and striping)
PB -39
Main Street - 481h Street to 491h Street
$90,000
(Add amid -block crosswalk with a rapid rectangular flashing beacon)
PB-40
Main Street/ 51s' Street
$10,000
(Add a crosswalk with signing)
PB-41
Main Street /Chapman Lane
$90,000
(Add a mid -block crosswalk with a rapid rectangular flashing beacon)
PB -42
Main Street 157th Street
$90,000
(Add a mid -block crosswalk with a rapid rectangular flashing beacon)
PB-43
Bob Straub Parkway /Daisy Street
$90,000
(Add a pedestrian /bicycle signal and crossing)
PB-44
Mountaingate Drive - Mountaingate Entrance to Dogwood Street
$260,000
(Add shared -use signing and striping; construct sidewalks and drainage improvements to fill
gaps)
PB-45
Mt. Vernon Road /Bob Straub Parkway
$390,000
(Add crosswalks at three or.four approaches with signing and striping and install pedestrian
hybrid beacon on the north -south leg)
PB-47
Thurston Road/ 661h Street
$90,000
(Add a crosswalk with a rapid rectangular flashing beacon)
PB -48
Thurston Road/ 691h Street
$90,000
(Add a crosswalk with a rapid rectangular flashing beacon)
PB-49
South 67th Street - Ivy Street to Main Street
$160,000
(Add shared -use signing and striping and construct sidewalks to fill gaps)
PB -50
Ivy Street - South 671h Street to South 701h Street
$20,000
'(Add shared -use signing and striping)
PB -51
South 701h Street - Main Street to Ivy Street
$50,000
SPNIN4r
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EXHIBIT B, Page 64 of 92
(Add shared -use signing and striping)
PB -52 City -wide Rectangular Rapid Flashing Beacons $4,400,000
(Install mid -block crossings City -wide with rapid rectangular Flashing beacons) J
TABLE 5
As development occurs projects in the 20 -year project list
'a-• -
R -1
North Gateway Collector - Maple Island Road /Royal Caribbean Way to International
$4,300,000
Way
(Construct a new collector with a three -lane cross - section with sidewalks and bicycle facilities)
R -4
Maple Island Road — Game Farm RoadlDeadmond Ferry Road to Beltline Road
$3,100,000
(Extend Maple Island Road with a two -lane cross-section with sidewalk, bicycle facilities, and
an intersection at Beltline)
R -5
Extend Riverbend Drive to International Way (Northeast Link)
$1,600,000
. .
(Extend Riverbend Drive with a three -lane cross - section with sidewalks and bicycle facilities)
R -6
Improvements to serve Riverbend Hospital
$10,200,000
(Improve Badly View Lane, construct a McKenzie - Gateway Loop connector /new collector and
construct off - street path connections)
R -8
Mallard Avenue - Gateway Street to Game. Farm Road
$4,530,000
(Change Mallard Avenue to a two -lane cross - section with sidewalks and bicycle facilities and
extend Mallard Avenue to Gateway Street with a two -lane cross - section with sidewalks and
bicycle facilities)
R -12
Franklin Boulevard Riverfront Collector
$7,700,000
(Construct a new collector as shown in the Glenwood Plan; two travel lanes with on- street
parking, sidewalks, and bicycle facilities)
R -16
East 171h Avenue - Glenwood Boulevard to Henderson Avenue
$1,900,000
(Change East 17th Avenue to a three -lane cross - section with sidewalks and bicycle facilities).
R -17
Henderson Avenue - Franklin Boulevard to East 191h Avenue
$3,400,000
(Modify Henderson Avenue with a three -lane cross - section with sidewalks and bicycle
facilities)
R -18
East 191h Avenue - Henderson Avenue to Franklin Boulevard
$3,500,000
(Change East 19'" Avenue to a three -lane cross - section with sidewalks and bicycle facilities)
R -24
1911, Street - Hayden Bridge to Yolanda Avenue
$2,400,000
(Extend W Street with a two -lane cross - section with sidewalks and bicycle facilities)
R -25
Hayden Bridge Road - 191h Street to Marcola Road
$12,000,000
(Change Hayden Bridge Road to a two -lane cross - section with sidewalks and bicycle
facilities)
R -26
Yolanda Avenue - 23rd Street to 31st Street
$460,000
(Modify Yolanda Avenue to a two -lane cross - section with sidewalks and bicycle facilities)
R -27
Yolanda Avenue to 33rd Street
$9,400,000
(Construct Yolanda Avenue from 3151 to 33rd Street with sidewalks and bicycle facilities)
R -28
Marcola Road to 3161 Street
$9,000,000
(Construct a new collector with a three -lane cross - section with sidewalks and bicycle facilities)
R -29
31st Street - Hayden Bridge to U Street
$3,800,000
(Change 31s' Street to a two -lane cross - section with sidewalks and bicycle facilities)
R -37
Commercial Avenue - 42nd Street to 481h Street, north of Main Street and North -South
$19,000,000
EXHIBIT B, Page 65 of 92
Connection
(Extend Commercial Street and add a north -south connection; three -lane cross - section with
sidewalks and bicycle facilities)
R42
Glacier Drive - 481h Street/Holly to South 55th Street
$6,300,000
(Construct a new collector with a two -lane cross - section with sidewalks and bicycle facilities)
R-45
Improvements within the Jasper - Natron Area
$67,000,000
(Construct multiple roadways in the Jasper - Natron area between Bob Straub Parkway, Jasper
Road, and Mt. Vernon Road)
R46
Bob Straub Parkway to Mountaingate Drive
$2,500,000
(Construct a new collector with a three -lane cross - section with sidewalks and bicycle facilities)
R-47
Haul Road - Mt. Vernon Road to UGB
$11,000,000
(Construct a two -lane green street in the Haul Road right -of- way;.coordinate with PB -46)
R-49
71 91h Street - Main Street to Thurston Road
$8,200,000
(Extend 7911 Street with a two -lane cross - section with sidewalks and bicycle facilities)
PB -1
McKenzie Gateway Path - Existing Path to Maple Island Road
$3,0001000
(Construct a new multi -use 12 -foot wide path from the end of the existing Riverbend Hospital
path to Maple Island Road)
PB-4
Wayside Lane /Ann Court to Riverbend Path
$80,000
(Construct a new multi -use 12 -foot wide path from Wayside Lane /Ann Court to the existing
Sacred Heart Medical Center - Riverbend path)
PB -27
South 2 "d Street to Island Park
$3,100,000
(Construct a new multi -use 12 -foot wide path along the Mill Race from South 2nd Street to Mill
Street at Island Park)
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EXHIBIT B, Page 72 of 92
Beyond 20 -year projects
A number of projects have been identified that may be implemented beyond the 20 -year
planning horizon (Table 6 and Figure 7). The timing of these projects depends on the pace and
location of development in the City and the surrounding areas; as such, these projects may
become a higher priority as conditions change. The inclusion of these projects into the 2035 TSP
allows the City to pursue a variety of funding sources and opportunities for their implementation.
At this point, the City has not identified cost estimates for the projects, given their long -term
nature.
TABLE 6
Beyond 20 -year projects
R -7
South of Kruse Way and east of Gateway Road
(Construct a new roadway to improve local connectivity south of Kruse Way /east of Gateway Road area)
R -15
Glenwood Boulevard -1 -5 to Franklin Boulevard
(Convert Glenwood Boulevard from three -lane to five -lane cross - section)
R -21
Pioneer Parkway to South 2nd Street
(Construct a new collector between Pioneer Parkway and South 2nd Street)
R -22
Extend South 141h Street South of Railroad Tracks
(Extend South 14' Street south of the Union Pacific Railroad mainline with a three -lane cross - section with
sidewalks and bicycle facilities)
R -23
South B Street - South. 51h to South B Street
(Extend South B Street with a three -lane cross - section with sidewalks and bicycle facilities)
R -35
OR 126142nd Street Interchange Improvements
(OR 126/42nd Street interchange improvements)
R-44
Daisy Street crossing of Bob Straub Parkway
(Construct an at -grade crossing or undercrossing of Bob Straub Parkway)
US-2
Laura Street - EWEB powerline corridor to Game Farm Road
(Change Laura Street to a three -lane cross - section with sidewalks and bicycle facilities) '
US -7
South 28th Street - F Street to UGB
(Modify South 28th Street to a three -lane cross - section with sidewalks and bicycle facilities)
US -8
351h Street - Olympic to Commercial Avenue
(Change South 351h Street to a three -lane cross - section with sidewalks and bicycle facilities)
US -9
Commercial Avenue - 35th to 42nd Street
(Modify Commercial Avenue to a three -lane cross - section with sidewalks and bicycle facilities)
US -10
36th Street - Commercial Avenue to Main Street
(Change 36th Street to a three -lane cross - section with sidewalks and bicycle facilities)
US -12
Jasper Road - South 42nd Street to northwest of Mt. Vernon Road
(Modify Jasper Road to a three -lane cross - section with sidewalks and bicycle facilities)
US -13
Bob Straub Parkway - Mt. Vernon Road to IJGB
(Change Bob Straub Parkway to a three -lane cross - section with sidewalks and bicycle facilities)
US -15
Main Street east of 72nd Street to UGB
(Modify Main Street to a three -lane cross - section with sidewalks and bicycle facilities)
EXHIBIT B, Page 73 of 92
Study projects
The 2035 TSP has identified a number of potential projects that need more study before the
community and local decision - makers considers specific recommendations (Table 7 and Figure
8). This TSP cannot cover the issues and level of detail that would be needed to create project
recommendations for these concepts. Therefore, the City of Springfield would need to create
individual refinement plans for each project as timing allows and funding becomes available.
These refinement plans can identify specific recommendations, cost estimates, potential funding
sources, and the timing for implementation.
TABLE 7
Study projects
PB -6
Springfield Christian School Channel Path - Dornoch Street to Laura Street
S -2
(Construct a new multi -use 12 -foot wide path from Dornoch Street to Laura Street)
PB -7
Extend EWEB Trail - Pioneer Parkway to Don Street
S-4
(Construct a new multi -use 12 -f6ot widepath in the EWEB powerline corridor from Pioneer Parkway to Don
S -5
Street with a crossing of Pioneer Parkway and Laura Street)
PB -11
By -Gully Path Extension - Pioneer Parkway to 5th Street
S -7
(Construct a new multi -use 12 -foot wide path from the existing By -Gully path at Pioneer Parkway to 50 Street)
PB -12
1 -5 Path — Willamette River Area Path to By -Gully Path
S -9
(Construct a new multi -use 12 -foot wide path parallel to 1 -5 from Willamette River area path /Eastgate
Woodlands to the end of the By -Gully path)
PB -28
South 3rd Street to South 51h Street
(Construct a new multi -use 12 -foot wide path from South 3rd Street to South 50 Street)
PB -31
Quarry Ridge Lane to Marcola Road
(Construct a new multi-use 12-foot wide path Quarry Ridge Lane to Marcola Road)
PB -38
Haul Road - Daisy Street to Booth Kelly Road
(Construct a new multi -use 12 -foot wide path in the Haul Road right -of -way from Daisy Street to Booth Kelly
Road)
Study projects
The 2035 TSP has identified a number of potential projects that need more study before the
community and local decision - makers considers specific recommendations (Table 7 and Figure
8). This TSP cannot cover the issues and level of detail that would be needed to create project
recommendations for these concepts. Therefore, the City of Springfield would need to create
individual refinement plans for each project as timing allows and funding becomes available.
These refinement plans can identify specific recommendations, cost estimates, potential funding
sources, and the timing for implementation.
TABLE 7
Study projects
5-1
Phase 2 of Beltline /Gateway improvements
S -2
OR 126 Expressway Management Plan
S -3
Pioneer Parkway /O Street/Laura Street circulation study to improve Q Street/Laura Street/Ramp
safety, access, and capacity
S-4
Study a new crossing of OR 126 between 51h and 151h Streets
S -5
Centennial Boulevard - Prescott Lane to Mill Street operational improvements study
S -6
Pioneer Parkway /Centennial Boulevard intersection study to improve pedestrian safety
S -7
Centennial Boulevard - Mohawk Boulevard to Pioneer Parkway operational improvements study
S -8
Study safety and operational improvements in Mohawk Boulevard /Olympic Street/
18th Street/Centennial triangle
S -9
Study a new bridge - Walnut Road/West D Street to Glenwood Boulevard /Franklin Boulevard
intersection
EXHIBIT B, Page 74 of 92
5 -10
Study Main Street/South A Street improvements -Mill Street to 2161 Street
5 -11
Refinement study for Glenwood industrial area
5 -12
Pedestrian /bicycle bridge study between Glenwood and Dorris Ranch
5 -13
Access plan study on Main Street between 216' Street and 4811 Street
5 -14
Study east -west connectivity between 281h Street and 32nd Street
5 -15
Study a new crossing of OR 126 near Thurston High School
5 -16
Connectivity study south of OR 126 and Jessica Street
Transit projects
The Springfield 2035 TSP incorporates the frequent transit network (FTN) projects included in the
RTSP (Table 8 and Figure 9). No additional capital transit projects were identified as part of the
Springfield 2035 TSP. The FTN projects are listed below in Table 8.
At this point, cost estimates for the frequent transit network projects have not been identified.
TABLE 8
transit network
T -1 Transit on Centennial Boulevard -1 -5 to Mohawk Boulevard
T -2 Transit on Franklin Boulevard /Main Street/South A Street to OR 126 /Main Street (east -west)
T -3 Transit on Franklin Boulevard and McVay Highway to.30'h Avenue (north- south)
T-4 Transit on Mohawk Boulevard - Centennial Boulevard to 19'1 Street/Marcola Road to 28th Street/
Olympic Street to Mohawk Boulevard
Note: These projects are included in the current Regional Transportation System Plan. The final transit network will
be developed through the Regional Transportation System Plan process.
EXHIBIT B, Page 75 of 92
Other travel modes
This section addresses the rail, air, pipeline, and surface water plans for the City of Springfield.
Each subsection below describes the respective network and how it operates within the City. No
future projects have been identified for these modes as the service is provided by other entities
beyond the City's jurisdiction. '
Rail service
There are two freight rail service providers in Springfield: Central Oregon and Pacific (COPR),
and Union Pacific (UP). COPR provides east -west freight service on track located just south of
Main Street and crossing over to slightly north of Franklin Boulevard west of the UGB. UP operates
freight service on a north -south line east of 1 -5 that intersects with the COPR line near the OR
126 /OR 225 junction (near Franklin Boulevard /E I 91 Avenue). The tracks run north to the Portland
metropolitan area and southeast to Oakridge, Klamath Falls, and into California. UP operates
approximately 20 freight trains per day along these tracks.
Amtrak also provides passenger service through Springfield to the Eugene station in Downtown
Eugene. Amtrak provides intercity passenger rail service between the City of Eugene and cities
north and south. The Amtrak Cascades route travels from Eugene to Vancouver, Canada and
the Coast Starlight route travels from Seattle to Los Angeles. Amtrak operates on the UP line.
Current higher speed rail plans may consider a station in Downtown Springfield, consistent with
the policies and actions in this TSP (Chapter 2).
Air service
There are no public or private airports in Springfield. The Eugene Airport at Mahlon Sweet Field
(EUG), the closest airport that provides commercial service, is located near Oregon Highway 99
about 11 miles northwest of Downtown Springfield.
Pipeline service and surface water transportation
Waterways and pipelines also provide transportation opportunities in Springfield. Because the
Willamette River and McKenzie River are not navigable waterways, there are no ports or
navigational facilities within Springfield. The public primarily uses these waterways for
recreational purposes, as neither river is a major stream for commercial activity. The McKenzie
River is frequented by anglers and rafters. Neither of these waterways provides direct access to
the ocean.
Springfield has no major pipelines. Natural gas is available to residential and commercial sites
throughout the community on a regular service -line basis.
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EXHIBIT B, Page 86 of 92
0 {` Chapter 6: Funding and
implementation
The Springfield 2035 Transportation System Plan (TSP) includes projects under the jurisdiction and
ownership of the state, county, City, Lane Transit District (LTD), and Willamalane Park and
Recreation District, as well as some projects that may include privately owned property. Each
project may be funded through a different combination of federal, state, City, county, or private
sources. This chapter discusses current and possible new funding mechanisms that may be
available to implement projects at some point during the life of the 2035 TSP. A complete list of
projects anticipated to be constructed in the 20 -year life of the 2035 TSP and planning -level cost
estimates for each project is provided in Chapter 5 (Tables 3 -5).
It is unlikely that every project contained in the TSP will be constructed in the next 20 years. While
the TSP does prioritize planned projects, the city may advance projects as opportunities arise.
These opportunities could include changes in policy or funding at the federal, state or local
level; changes in local development priorities; or public - private or public - public partnerships.
The categories of projects, specifically 20 -year priority projects and beyond 20 -year priority
projects are intended to be interpreted flexibly to allow the city to make wise investments
consistent with the overall vision contained in this TSP.
20 -year estimated revenue stream
RTP forecasts
The 2011 RTP forecasts constrained revenues for the transportation system in the Metropolitan
Planning Organization (MPO) boundary for the 20 -year planning. horizon. If includes:
• Local funding from Eugene, Springfield, and Lane County (operations, maintenance,
and preservation; bike improvements; and system improvements)
• LTD funding (system improvements only)
• Oregon Department of Transportation (ODOT) funding (planning studies and system
improvements only)
Approximate transportation revenues for the City of Springfield
Setting aside expected revenues for operations, maintenance, preservation, and transit system
improvements, the RTP anticipates just under $600 million in funding for bike, pedestrian, and
roadway system improvements in the MPO area through 2035. Assuming that Springfield
receives roughly one -third of regional funding, the City may receive as much as $186 million in
transportation revenues for non - transit projects in the next 20 years as shown in Table 9.
TABLE 9
Springfield revenue assumptions
Source: 2011 Central Lane RTP
Cost of 20 -year needs
The 2035 Springfield TSP includes 136 transportation projects. The 20 -year projects would cost
approximately $498,907,000 to implement ($2013). This estimate provides the City with an idea of
the cost for future transportation needs to support expected community growth and
development. The City, using the sources described in this chapter, will seek funding to make
these investments in the transportation system. Tablel0 contains cost estimates by project
category.
TABLE 10
20 -year project cost estimates
System improvements
$74,400,000
Local on- and off - street bike improvements
$15,300,000
ODOT system. improvements
$96,000,000
Total revenue for system improvements
$185,700,000
Source: 2011 Central Lane RTP
Cost of 20 -year needs
The 2035 Springfield TSP includes 136 transportation projects. The 20 -year projects would cost
approximately $498,907,000 to implement ($2013). This estimate provides the City with an idea of
the cost for future transportation needs to support expected community growth and
development. The City, using the sources described in this chapter, will seek funding to make
these investments in the transportation system. Tablel0 contains cost estimates by project
category.
TABLE 10
20 -year project cost estimates
Potential funding sources
Highway user taxes and fees, including Oregon State fuel taxes, licensing and registration fees,
as well as local fuel taxes, have provided the primary source of funding for transportation -
related projects in the City. In recent years, these sources have increasingly been devoted to
operations, maintenance and preservation, and diverted from capacity development or
expansion projects. To supplement these sources, the City will need to develop a strategy to
fund the TSP improvements. Possible elements of this strategy are outlined below.
Priority — roadway projects
$224,360,000
Priority— urban standards projects
$24,770,000
Priority— pedestrian and bicycle projects
$32,987,000
Opportunity — roadway projects
$11,020,000
Opportunity — pedestrian and bicycle projects
$8,270,000
As development occurs — roadway projects
$191,290,000
As development occurs — pedestrian and bicycle projects
$6,180,000
Total costs
$498,877,000
Potential funding sources
Highway user taxes and fees, including Oregon State fuel taxes, licensing and registration fees,
as well as local fuel taxes, have provided the primary source of funding for transportation -
related projects in the City. In recent years, these sources have increasingly been devoted to
operations, maintenance and preservation, and diverted from capacity development or
expansion projects. To supplement these sources, the City will need to develop a strategy to
fund the TSP improvements. Possible elements of this strategy are outlined below.
EXHIBIT B, Page 88 of 92
Local funding mechanisms
At the local level, the City can draw on a number potential funding mechanisms to help finance
the 2035 TSP. Table 11 outlines potential funding sources at the local level that could be
implemented in the City's future. In general, local funding sources are more flexible than funding
obtained from state or federal grant sources.
TABLE 11
Potential local funding mechanisms
Street utility fees
A fee based on the number of trips a particular land use
System -wide transportation
(also called road
generates and is usually collected through a regular utility bill.
facilities including streets,
maintenance fees)
Fees can also be tied to the annual registration of a vehicle to
sidewalks, bike lanes, and
pay for improvements, expansion, and maintenance on the
trails.
street system.
Transportation
SDCs are fees assessed on development for impacts created
System -wide transportation
Systems
to public infrastructure. All revenue is dedicated to
facilities including streets,
Development
transportation capital improvements attributable to growth. A
sidewalks, bike lanes, and
Charge (SDC)
significant portion is further limited to those capital
trails.
improvements, preservation, and studies related to the
needed improvement that increase capacity designed to
accommodate growth. The City can also offer SDC credits to
developers that provide public improvements beyond the
required street frontage, including those that can be
constructed by the private sector at a lower cost. For
example, an SDC credit might be given for providing end -of-
trip bike facilities within the new development. Use of these
credits as an incentive can generate private capital funding.
Stormwater SDCs,
SDCs, grants, and loans can be obtained for improving
SDCs may only be used for that
grants, and loans
stormwater management facilities.
portion of transportation
improvements which generate
additional stormwater
management capacity related to
growth.
Local gas tax
A local tax can be assessed on the purchase of gas within the
System -wide transportation
City. This tax is added to the cost of gasoline at the pump,
facilities including streets,
along with the state and federal gas taxes.
sidewalks, bike lanes, and
trails.
Parking in -lieu
Parking in-lieu fees are fees that are assessed to developers
System -wide transportation
fees
that cannot or do not want to provide the parking for the
facilities including streets,
development. The idea is to decrease the amount of off-
sidewalks, bike lanes, trails,
street, private parking and consolidating parking on- street or
and transit.
in parking garages, as a way to decrease parking demand. .
May benefit developers by reducing costs.
Incentives
The City provides an enticement such as bonus densities and
System -wide transportation
flexibility in design in exchange for a public benefit. Examples
facilities including streets,
might include a commute trip reduction (CTR) program, or
sidewalks, bike lanes, trails,
transit facilities in exchange for bonus densities. May be used
and transit.
with SDC methods to reduce transportation impacts.
EXHIBIT B, Page 89 of 92
State and federal grants
In addition to local funding sources, the City of Springfield can seek to leverage opportunities for
funding from grants at the state and federal levels for specific projects. The current Federal
Transportation Bill, MAP -21, expires in September of 2014, and funding opportunities may change
after that date. Table 12 outlines those sources and their potential applications.
Potential state funding sources are extremely limited with significant competition for these limited
funds. Any future improvements that rely on state funding will require City and regional
consensus that these improvements take precedent over transportation needs elsewhere in the
region and the state. It will likely be necessary to utilize multiple funding sources so dollars can be
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Public /private
Public /private partnerships have been used in several places
System -wide transportation
partnerships
around the country to provide public transportation amenities
facilities including streets,
within the public right -of -way in exchange for operational
sidewalks, bike lanes, trails,
revenue from the facilities. These partnerships could be used
and transit.
to provide services such as charging stations,: public parking
lots, bicycle lockers, or car share facilities.
Tax Increment
TIF is a tool that cities use to create special districts (tax
System -wide transportation
Financing (TIF)
increment areas) where public improvements are made in
facilities including streets,
order to generate private- sector development. During a
sidewalks, bike lanes, trails,
defined period, the City freezes the tax base at the pre-
and transit.
development level. Property taxes for that period can be
waived or paid, but taxes derived from increases in assessed
values (the tax increment) resulting from new development
can go into a special fund created to retire bonds issued to
originate the development or leverage future improvements.
A number of small -to- medium sized communities in Oregon
have implemented, or are considering implementing, urban
renewal districts that will result in a TIF revenue stream.
Streets District
A Streets District is essentially a type of special district.
Roadway improvement
Oregon state law (ORS 371) allows for the formation of
projects, particularly along Main
special streets taxing districts for purposes of constructing
Street.
and maintaining streets within the taxing district boundaries. A
streets district would be a separate entity from the City of
Springfield, with its own property tax levy rate and an elected
board of commissioners. Those within the potential district
boundaries must vote on the creation of a streets district.
Revenue and
Bonding allows municipal and county government to finance
Construction of major capital
general obligation
construction projects by borrowing money and paying it back
improvement projects within the
bonds
over time, with interest. Financing requires smaller regular
City.
payments over time compared to paying the full cost at once,
but financing increases the total cost of the project by adding
interest. General obligation bonds are often used to pay for
construction of large capital improvements and must be
approved by a vote of the public. These bonds add the cost of
the improvement to property taxes over time.
Reimbursement
Also called Advance Financed Districts, the City determines.
Construction of major capital
Districts
the boundary of the district. Property owners of new
improvement projects within the
" development or large redevelopment permits pay a fee for the
City (possibly in Study Areas).
instillation of public improvements. They then recover some
portion of the cost over a period of years (often 15). ".
State and federal grants
In addition to local funding sources, the City of Springfield can seek to leverage opportunities for
funding from grants at the state and federal levels for specific projects. The current Federal
Transportation Bill, MAP -21, expires in September of 2014, and funding opportunities may change
after that date. Table 12 outlines those sources and their potential applications.
Potential state funding sources are extremely limited with significant competition for these limited
funds. Any future improvements that rely on state funding will require City and regional
consensus that these improvements take precedent over transportation needs elsewhere in the
region and the state. It will likely be necessary to utilize multiple funding sources so dollars can be
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EXHIBIT B, Page 90 of 92
combined for a single improvement projects (e.g., combining state, regional, or City bicycle and
pedestrian funds to pay for new bike lanes and sidewalks).
TABLE 12
Potential state and federal grants
SPRIHGFIEW
f�10P[CON
Statewide Transportation
STIP is the State of Oregon's four -year -
Projects on any facility that meet
Improvement. Program (STIP)
transportation capital improvement program.
the benefit categories of the STIP.
Local agencies apply in advance for projects to
be funded in each four -year cycle.
Capital projects are prioritized based on benefit
categories, including (in the 2015 -2018 STIP)
benefits to state -owned facilities, mobility,
accessibility, economic vitality, environmental
-.
stewardship, land use, growth management,
livability, safety, security, equity, funding, and
finance.
Transportation and Growth
TGM Grants are administered by ODOT and
Pedestrian and bicycle master
Management Grants (TGM)
awarded on an annual basis. The TGM grants
plan, refinement of any identified
are generally awarded to projects that will lead
study projects.
to more livable, economically vital,
transportation efficient, sustainable, pedestrian -
friendly communities. The grants are awarded
in two categories: transportation system
planning and integrated land use and
transportation planning.
Transportation Alternatives
TAP is a federal program that provides funding
Bicycle and pedestrian facilities,
Program (TAP)
for pedestrian and bicycle facilities, projects for
multi -use trails.
improving public transit access, safe routes to
schools, and recreational trails. Local
.
governments, regional transportation
authorities, transit agencies, school districts or
schools, natural resource or public land
agencies, and tribal governments are all
eligible to receive TAP funds.
Highway Safety Improvement
HSIP is a federal program that provides
Areas of safety concerns within the
Program (HSIP)
funding to infrastructure and non - infrastructure
City, consistent with Oregon's
projects that improve safety on all public roads.
Transportation Safety Action Plan.
HSIP requires a data - driven approach and
.
prioritizes projects in demonstrated problem
areas.
Congestion Mitigation and
CMAQ is a federal program, administered
Projects that demonstrate the
Air Quality (CMAQ)
through the state, and funds projects that help
potential to reduce emissions:
reduce emissions and meet national air quality
bicycle and pedestrian facilities,
.'
standards, such as transportation demand
transportation demand
management programs, bicycle and pedestrian
management.
improvements, transit projects, diesel retrofits,
and vehicle emissions reductions programs.
ODOT Bicycle and
These grants are distributed competitively to
Pedestrian and bicycle projects
Pedestrian Program Grants
local governments. A minimum of one percent
within the public right -of -way are
of annual state highway revenues are devoted
eligible to apply for grants from this
to this program, with about $5 million in funding
program.
available every two years.
SPRIHGFIEW
f�10P[CON
EXHIBIT B, Page 91 of 92
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Immediate Opportunity Fund
This fund is discretionary, and provides funding
Any identified study, projects that
for transportation projects essential for
would improve the economic
supporting site - specific economic development
development within Springfield and
projects. These funds are distributed on a
there are documented
case -by -case basis in cooperation with the
transportation problems.
Oregon Economic and Community
Development Department.
These funds can only be used when other
sources of financial support are insufficient or
unavailable. These funds are reserved for
'
projects where a document transportation
problem exists, or where private firm location
decisions hinge on the immediate commitment
of road construction. A minimum 50 percent
match is required from project applications.
ConnectOregon
Lottery- backed bonds distributed to air, marine,
System -wide transportation
rail, transit, and other multi -modal projects
facilities including streets,
statewide. No less than 10 percent of
sidewalks, bike lanes, trails, and
ConnectOregon IV funds must be distributed to
transit.
each of the five regions of the state, if there are
qualified projects in the region. The objective is
to improve the connections between the
highway system and other modes of
transportation. _
Oregon Parks and
Oregon Parks and Recreation Department
Trails and other recreational facility
Recreation Local
administers this program using Oregon Lottery
development or rehabilitation.
Government Grants
revenues. These grants can fund acquisition,
'
development, and major rehabilitation of public
outdoor parks and recreation facilities. A match
of at least 20 percent is required.
Oregon Transportation
A statewide revolving loan fund is available to
Infrastructure improvements to
Infrastructure Bank (OTIB)
local governments for many transportation
major collectors or higher classified
infrastructure improvements, including
roads for vehicle, transit, and non -
highway, transit, and non - motorized projects.
motorized travel.
Most funds made available through this
program are federal; streets must be
functionally classified as a major collector or
higher to be eligible for loan funding.
State highway gas tax
Oregon state legislatures are currently
System -wide transportation
increase or user fee
researching a state user fee for drivers to
facilities including streets, .
address steady or declining state gas tax
sidewalks, bike lanes, trails, and
revenues. An increase in the state gas tax or a
transit.
user fee would need to pass through state
legislation and would increase the state's
transportation funds.
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EXHIBIT B, Page 92 of 92
x Chapter 7: Code and policy updates
The Transportation Planning Rule (TPR), as codified in Oregon Administrative Rules (OAR)
660 - 012- 0020(2)(h), requires that local jurisdictions identify land use regulations and code
amendments needed to implement the Springfield 2035 Transportation System Plan (TSP) and
include them as the implementation element of the 2035 TSP. To that end, recommended
changes to the City's planning regulations needed to implement the 2035 TSP are provided in
Volume 2, Appendix I: Plan implementation and recommendation ordinance /code language.
The City bases the implementation measures primarily on a review of the 2035 TSP for
consistency with Springfield Community Development Code and regulatory requirements. The
implementation measures also reflect projects and recommendations in the 2035 TSP as well as
discussions with project team members.
The recommended implementation measures address the following. Most of the measures
involve changes to the Springfield Development Code.
• Needs of the transportation dependent and disadvantaged
• System connectivity
• Ways of supporting and promoting walking, biking, and taking transit
• Treatment of transportation facilities in the land use planning and permitting process
• Update and adapt the Conceptual Street map
The implementation measures that reflect strategies identified in the 2035 TSP emphasize
maximizing the capacity of existing and recommended facilities. In particular, the 2035 TSP
encourages modes other than driving alone through an increase in transit, walk, and bike
modes, which is essential to the future transportation system in Springfield. These measures
constitute a combination of potential amendments to the Springfield Development Code or
Comprehensive Plan, as well as the City coordinating additional planning, administration, and
programming.