HomeMy WebLinkAbout2018 03 20 AIS Glenwood EDSPM to CodeAGENDA ITEM SUMMARY Meeting Date: 3/20/2018
Meeting Type: Regular Meeting
Staff Contact/Dept.: Molly Markarian/DPW Staff Phone No: 541-726-4611
Estimated Time: 30 Minutes
S P R I N G F I E L D PLANNING COMMISSION Council Goals: Mandate
ITEM TITLE:
RELOCATE GLENWOOD RIVERRONT STREET DESIGN STANDARDS
FROM ENGINEERING DESIGN STANDARDS AND PROCEDURES MANUAL (EDSPM) TO SPRINGFIELD DEVELOPMENT CODE
ACTION
REQUESTED:
Conduct a public hearing to receive testimony on the proposed Development Code amendment contained in Attachment 3 to relocate the Glenwood Riverfront street
design standards from the EDSPM to the Development Code. Then, discuss and develop a recommendation for Council deliberation.
ISSUE
STATEMENT:
The City Attorney’s Office has recommended that the Glenwood Riverfront Street Cross-Section Standards currently adopted as Appendix 1A of the EDSPM be
adopted as land use regulations into the Springfield Development Code.
ATTACHMENTS: Attachment 1: Draft Planning Commission Final Order
Attachment 2: Exhibit A - Staff Report Attachment 3: Exhibit B - Proposed Development Code Amendment
DISCUSSION:
In 2012, the City Council approved amendments to the Eugene-Springfield Metropolitan Area General Plan (Metro Plan) diagram, Glenwood Refinement Plan
(GRP) text and diagram, Springfield Development Code, and Springfield Zoning
Map for the Glenwood Riverfront. The Glenwood amendment package was ultimately acknowledged by the Department of Land Conservation and
Development (DLCD) in 2014. To implement the GRP Transportation policies, the Council approved amendments
to the City’s Engineering Design Standards and Procedures Manual (EDSPM), including specific design standards for the Glenwood Riverfront internal street network (Resolution 2012-23). These Glenwood-specific street standards comprise
Appendix 1A of the EDSPM.
The City Attorney’s Office is recommending that the Glenwood Riverfront Street
Cross-Section Standards be adopted as land use regulations into the Springfield Development Code pursuant to the Post-Acknowledgement Plan Amendment
(PAPA) procedures in ORS 197.610 et seq. Staff recommends moving the text and
images from Appendix 1A of the EDSPM to Springfield Development Code (SDC) Section 3.4-200, Glenwood Riverfront Mixed-Use Plan District, as detailed in
Attachment 3.
BEFORE THE PLANNING COMMISSION OF SPRINGFIELD, OREGON
ORDER AND RECOMMENDATION FOR:
AMENDMENT TO THE SPRINGFIELD DEVELOPMENT CODE FOR ]
GLENWOOD RIVERFONT STREET DESIGN STANDARDS ] 811-17-000137-TYP4
NATURE OF THE PROPOSAL
Request that the Springfield Planning Commission forward a recommendation of approval to the Springfield City
Council regarding amendments to the following sections of the Springfield Development Code, as shown in Exhibit
B:
Chapter 3 Land Use Districts:
Section 3.4-200 Glenwood Riverfront Mixed-Use Plan District
o Subsection 3.4-230 Modifications
o Subsection 3.4-270 Public and Private Development Standards
Notice was sent to the Department of Land Conservation and Development on February 13, 2018, not less than 35
days prior to the first evidentiary hearing in compliance with OAR 660-018-0020.
Timely and sufficient notice of the public hearing has been provided, pursuant to Springfield Development Code
Section 5.2-115.
On March 20, 2018, the Springfield Planning Commission held a duly noticed public hearing on the proposed text
amendments. The public hearing was conducted in accordance with Springfield Development Code Sections 5.2-
120 through 5.2-145. After review of the staff report, evidence in the record, written comments (Exhibit C), and
testimony of those who spoke at the public hearing, the Planning Commission determined that the code
amendments meet the approval criteria.
CONCLUSION
On the basis of the Findings of Fact (Exhibit A) and evidence in the record, the proposed code amendments
(Exhibit B) meet the approval criteria of Springfield Development Code Section 5.6-115.
ORDER/RECOMMENDATION
It is ORDERED by the Springfield Planning Commission that a RECOMMENDATION for approval of 811-17-000137-
TYP4 be forwarded to the Springfield City Council for consideration at an upcoming public hearing.
____________________________ ____________________
Planning Commission Chairperson Date
ATTEST
AYES:
NOES:
ABSENT:
ABSTAIN:
Attachment 1, Page 1 of 1
Page 1 of 10
Type IV Amendment to the Springfield Development Code Exhibit A - Staff Report & Findings
Project Name: EDSPM Land Use Regulation Amendment
Nature of Application: To move text and images from Appendix 1A of EDSPM to Development Code by
Council Ordinance.
Case Number: 811-17-000137-TYP4
Project Location: Glenwood Refinement Plan Phase I legislative action
Date of Initiation: October 20, 2017
Date of DLCD Notice of Proposed Amendment: February 13, 2018
Date of Newspaper Notice: February 28, 2018
Date of Mailed Notice: February 28, 2018
Date of Hearings: March 20, 2018 (Planning Commission)
Executive Summary
In 2012, the City Council approved amendments to the Eugene-Springfield Metropolitan Area General
Plan (Metro Plan) diagram, Glenwood Refinement Plan (GRP) text and diagram, Springfield Development
Code, and Springfield Zoning Map for the Glenwood Riverfront. The Glenwood amendment package
was ultimately acknowledged by the Department of Land Conservation and Development (DLCD) in
2014.
To support implementation of the GRP policies, the Council approved amendments to the City’s
Engineering Design Standards and Procedures Manual (EDSPM), including specific design standards for
the Glenwood Riverfront internal street network (Resolution 2012-23). These Glenwood-specific street
standards comprise Appendix 1A of the EDSPM.
The City Attorney’s Office is recommending that the Glenwood Riverfront Street Cross-Section
Standards be adopted as land use regulations into the Springfield Development Code pursuant to the
Post-Acknowledgement Plan Amendment (PAPA) procedures in ORS 197.610 et seq. Staff recommends
moving the text and images from Appendix 1A of the EDSPM to Springfield Development Code (SDC)
Section 3.4-200, Glenwood Riverfront Mixed-Use Plan District.
SDC Section 5.6-115 includes the following criteria to be used in approving an amendment to the SDC:
“In reaching a decision on the adoption or amendment of refinement plans and this Code’s text, the City
Council shall adopt findings that demonstrate conformance to the following: The Metro Plan; applicable
State statutes; and, applicable Statewide Planning Goals and Administrative Rules. Based on findings
Attachment 2, Page 1 of 10
Exhibit A 1 of 10
Page 2 of 10
found later in this report in response to these criteria, the proposed amendments to SDC Section 3.4-
200 are consistent with these criteria and therefore the Planning Commission may forward a
recommendation of approval of this proposal to the City Council.
Nature of Request
The Springfield Development Code (SDC) is the acknowledged land use implementation ordinance for
Springfield. The SDC and its development review provisions are periodically reviewed, updated, or
revised to meet changing circumstances and conditions. City staff initiated this request pursuant to the
City Attorney Office’s recommendation to adopt Appendix 1A of the Engineering Design Standards and
Procedures Manual (EDSPM) into the Springfield Development Code by ordinance in accordance with
the Post-Acknowledgement Plan Amendment procedures outlined in Oregon Revised Statutes 197.610-
197.620.
In accordance with SDC 5.6-110, amendments of the Development Code are reviewed under Type IV
procedure as a legislative action. Type IV procedures as defined in SDC Section 5.1-140 require: 1)
review and a recommendation by the Springfield Planning Commission; and 2) adoption of ordinance by
the Springfield City Council.
Staff requests that the Springfield Planning Commission forward a recommendation of approval to the
Springfield City Council regarding proposed amendments to SDC Section 3.4-200, Glenwood Riverfront
Mixed-Use Plan District, to relocate the text and images from Appendix 1A of the EDSPM to the
Springfield Development Code so that they may be acknowledged as a land use regulation.
Overview of Proposed Text Amendment
The Springfield Development Code (SDC) provides the following role for Glenwood Riverfront Mixed-Use
Plan District (Section 3.4-200): “The Glenwood Riverfront Mixed-Use Plan District takes policies from
the Glenwood Refinement Plan and establishes and implements development standards and building
design standards specifically applicable to this Plan District.” Thus, Section 3.4-200 is the appropriate
location for the Glenwood Riverfront street design standards.
The proposal under review is to amend SDC Section 3.4-200 (specifically Subsections 3.4-230 and 3.4-
270), as depicted in Exhibit B, to incorporate the street design standards text and images previously
located in Appendix 1A of the Engineering Design Standards and Procedures Manual into the Glenwood
Riverfront Mixed-Use Plan District.
Notification and Written Comments
In accordance with the Oregon Administrative Rules 660-018-0020, prior to adopting a change to an
acknowledged comprehensive plan or land use regulation, local governments are required to notify the
state Department of Land Conservation and Development (DLCD) at least 35 days prior to the first
evidentiary hearing. A Notice of Proposed Amendment was submitted electronically to the DLCD on
February 13, 2018, which is more than 35 days prior to the Planning Commission public hearing on the
matter.
In accordance with Springfield Development Code Section 5.2-115.B, Type IV legislative land use decisions
require notice in a newspaper of general circulation. Notification of the Planning Commission public
hearing was published in the legal notices section of The Register Guard on February 28, 2018. Notice of
Attachment 2, Page 2 of 10
Exhibit A 2 of 10
Page 3 of 10
the City Council public hearing on the proposal will be published at least one week prior to the hearing
date.
In accordance with Oregon Revised Statutes 227.186, Ballot Measure 56 notice was mailed to all
landowners within the Glenwood Riverfront (Phase I) boundary on February 28, 2018, which is more
than 20 days but less than 40 days before the first public hearing.
Brief History of Phase I Glenwood Refinement Plan
On February 25, 2008, the Springfield City Council directed staff to proceed with updating the
Glenwood Refinement Plan in phases.
For the Phase I (Glenwood Riverfront) update, City staff, along with partner agencies and a 20-
member Citizen Advisory Committee, developed a package of amendments to the Eugene-
Springfield Metropolitan Area General Plan (Metro Plan) diagram, Glenwood Refinement Plan
diagram and text, Springfield Development Code, and Springfield Zoning Map.
On June 18, 2012, the Phase 1 Update was adopted by the Springfield City Council, Ordinance 6279.
On September 5, 2012, the Phase 1 Update was co-adopted by the Lane County Board of
Commissioners, Ordinances PA 1288 and No. 3-12.
On September 28, 2012, Shamrock Homes, LLC filed a Notice of Intent to Appeal to the Land Use
Board of Appeals (LUBA).
On July 12, 2013, LUBA rendered its decision. LUBA required Springfield and Lane County to take
additional action with regards to Goal 9 (Economic Development); Goal 10 (Housing); Goal 12
(Transportation); and Goal 15 (Willamette River Greenway).
On April 7, 2014, the response to the LUBA Remand by Springfield was adopted by the Springfield
City Council, Ordinance 6316.
On April 14, 2014, the response to the LUBA Remand by Lane County was adopted by the Lane
County Board of Commissioners, Ordinances PA 1306 and No. 13-07.
On May 9, 2014, the Phase 1 Update, including all adopted Ordinances, was acknowledged by the
Oregon Department of Land Conservation and Development.
Criteria of Approval
Springfield Development Code (SDC) Section 5.6-115A. describes the criteria to be used in approving an
amendment to the SDC. It states that in reaching a decision, the Planning Commission and the City
Council must adopt findings that demonstrate conformance with 1) the Metro Plan, 2) applicable State
statutes, and 3) applicable Statewide Planning Goals and Administrative Rules.
Findings of Fact
Conformance with the Metro Plan
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is Springfield’s prevailing
comprehensive plan. The Springfield 2030 Residential Land Use and Housing Element was adopted in
2011 through Springfield Ordinance 6268 and Lane County Ordinance No. PA. 1274 as a refinement to
the Metro Plan. Amendments to the Development Code must be considered within the context of
Springfield’s adopted policies. Thus, any proposed amendments must be consistent with the Metro Plan
Attachment 2, Page 3 of 10
Exhibit A 3 of 10
Page 4 of 10
and the Springfield 2030 Residential Land Use and Housing Element. The Springfield 2035
Transportation System Plan adopted in 2014 by Springfield Ordinance 6314 and Lane County Ordinance
No. PA 1303 is a functional plan of the Metro Plan. Applicable policies and findings of fact showing
compliance with those policies are presented below.
Finding: The street design standards that are the subject of the proposed Development Code
amendment implement the adopted and acknowledged policies of the Phase I Glenwood Refinement
Plan (GRP) Transportation Chapter, which were found to be in conformance with the Metro Plan and
Springfield 2030 Residential Land Use and Housing Element through the Phase I GRP adoption process.
The following Metro Plan policies from the Environmental Design Element are implemented by the
proposed amendments to the Development Code and therefore provide substantive confirmation that
the proposal is consistent with the Metro Plan.
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.
Finding: The street design standards support the design and construction of a local street network in the
Glenwood Riverfront that meets Springfield’s adopted vision and policies for riverfront redevelopment.
E.6. Local jurisdictions shall carefully evaluate their development regulations to ensure that they address
environmental design considerations, such as, but not limited to, safety, crime prevention, aesthetics,
and compatibility with existing and anticipated adjacent uses.
Finding: In developing specific street type design standards for the Glenwood Riverfront, the City
considered the future land use context and environmental design considerations, as outlined in the
Phase I GRP.
E.8. Site planning standards developed by local jurisdictions shall allow for flexibility in design that will
achieve site planning objectives while allowing for creative solutions to design problems.
Finding: The proposed Development Code amendments include street design standards that provide
design options for meeting the Phase I GRP transportation policies in the design and construction of the
Glenwood Riverfront local street network.
The following Springfield 2035 Transportation System Plan policies under the System Design goal are
implemented by the proposed amendments to the Development Code and therefore provide
substantive confirmation that the proposal is consistent with the Metro Plan (refinements of and
functional plans to the Metro Plan are elements of the Metro Plan therefore implementing ordinances
must achieve the same consistency with these documents as provided to the Metro Plan.).
3.2 Expand and enhance Springfield’s bikeway system and provide bicycle system support facilities for
both new development and redevelopment/expansion.
Finding: The street design standards included in the proposed Development Code amendment require
the provision of bike lanes on collector streets and the installation of shared-roadway facilities, on-street
pavement markings, and traffic calming measures along local streets with slow vehicle traffic.
Attachment 2, Page 4 of 10
Exhibit A 4 of 10
Page 5 of 10
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.
Finding: The proposed Development Code amendment includes street design standards that provide
design options. In conformance with the Phase I GRP transportation policies, the street designs are
intended to reduce vehicular speeds while encouraging safe bicycle and pedestrian travel, allow for
provision of mid-block pedestrian crossings, incorporate traffic calming measures, and integrate
pedestrian amenities and environmentally sensitive street design.
3.4 Provide for a continuous transportation network with reasonably direct travel routes to destination
points for all modes of travel.
Finding: The street design standards included in the proposed Development Code amendment support
the implementation of a connected grid network in the Glenwood Riverfront and require provision of
wide, setback sidewalks on all streets.
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 system improvements.
Finding: The development of the street design standards that are the subject of the proposed
Development Code amendment was coordinated with traffic engineers, fire and life safety personnel,
and public works operations staff.
Conclusion: The code amendment complies with applicable policies from the Metro Plan, including the
Springfield 2030 Comprehensive Plan Residential Land Use and Housing Element and the Springfield
2035 Transportation System Plan, and therefore meets Criterion A.1.
Conformance with Applicable State Statutes
Finding: Oregon Revised Statutes (ORS) 197.175(2) states that … “each city and county in this state shall:
(a) Prepare, adopt, amend and revise comprehensive plans in compliance with goals approved by the
commission; (b) Enact land use regulations to implement their comprehensive plans;…”
Finding: The proposed amendment to SDC 3.4-200 implements the Phase I GRP Transportation Chapter
policies and implementation strategies as required by ORS 197.175(2)(b).
Finding: ORS 227.186 requires local governments to mail individual notices (‘Ballot Measure 56 Notice’)
to real property owners of pending land use changes that could limit or prohibit previously allowed uses.
Finding: As noted on p.2, Ballot Measure 56 Notice was mailed to all landowners within the GRP Phase I
boundary on February 28, 2018 in compliance with ORS 227.186.
Finding: ORS 197.250 requires local government land use regulations to comply with Statewide Planning
Goals.
Finding: This application can be deemed in compliance by adoption of findings relating how the
application conforms to each of the Statewide Planning Goals, as outlined in the following section.
Attachment 2, Page 5 of 10
Exhibit A 5 of 10
Page 6 of 10
Finding: ORS 197.610 requires local jurisdictions to submit proposed comprehensive plan or land use
regulation changes to the Department of Land Conservation and Development (DLCD).
Finding: As noted on p.2, notice of the proposed amendment was provided to DLCD more than 35 days
in advance of the first evidentiary hearing concerning the amendments.
Conclusion: The preceding findings demonstrate this proposed code amendment complies with
applicable statues, therefore Criterion A.2. is met.
Conformance with Applicable Statewide Planning Goals and Administrative Rules
Finding: Goal 1 – Citizen Involvement – calls for “the opportunity for citizens to be involved in all phases
of the planning process”. The public has been given extensive opportunities to be involved in the street
design standards that comprise the subject Development Code amendment, including the development
and adoption of the Phase I Glenwood Refinement Plan (GRP), the adoption of the standards into the
Engineering Design Standards and Procedures Manual (EDSPM), and, more recently, through the public
process to incorporate these same standards into the Springfield Development Code (SDC).
Finding: The adopted and acknowledged Phase 1 GRP incorporated an extensive citizen involvement
process over the course of the 6½-year work task, including the formation of a Citizen Advisory
Committee, mailed (Ballot Measure 56) and newspaper notice, and numerous public hearings at the
Planning Commission, Springfield City Council, and Lane County Board of Commissioners.
Finding: The development and adoption of the 2012 EDSPM amendments to incorporate the subject
street standards into Appendix 1A, provided opportunities for citizen engagement. Specifically, the
updates were posted on the City’s website and three emails were sent to nearly 50 members of the
engineering and development community asking for input. A duly noticed Council public hearing was
also held on the EDSPM amendments.
Finding: Springfield’s Committee for Citizen Involvement reviewed and approved a Citizen Engagement
Plan for the subject land use action on March 6, 2018. This plan builds upon prior citizen involvement
opportunities for Glenwood planning efforts and encourages and maintains open channels of
communication between the City and affected parties.
Finding: The proposed Development Code amendment is the subject of a legislative decision-making
process with public hearings before the City’s Planning Commission and Council. The Planning
Commission is scheduled to conduct a public hearing to consider the proposed amendment on March
20, 2018. The recommendation of the Planning Commission will be forwarded to the Springfield City
Council for consideration at a public hearing meeting.
Finding: The Planning Commission public hearing was advertised in the legal notices section of the
Register-Guard on February 28, 2018 and notification of the City Council public hearing also will be
published in the Register-Guard newspaper.
Finding: Public hearing notice and responses to Frequently Asked Questions were mailed to all residents
and property owners in the Glenwood Riverfront on February 28, 2018. Planning staff was available to
Attachment 2, Page 6 of 10
Exhibit A 6 of 10
Page 7 of 10
answer additional questions at a general Glenwood Open House sponsored by the City at Roaring Rapids
Pizza Company in Glenwood on March 13, 2018.
Finding: Information concerning the proposed amendment and the dates of the public hearings were
posted on the City of Springfield website. This website routinely includes information about upcoming
and continuing planning matters.
Finding: Agenda notice and/or agenda packets are routinely provided (primarily by e-mail) to interested
parties who have asked for such notification. Those notified include local media outlets and
newspapers, local utilities, school districts and partner agencies, local state representatives, the Eugene
and Springfield Chambers of Commerce, the Lane Homebuilders Association, as well as various
neighborhood groups and leaders.
Finding: Goal 2 – Land Use Planning – outlines the basic procedures for Oregon’s statewide planning
program. In accordance with Goal 2, land use decisions are to be made in conformance with a
comprehensive plan, and jurisdictions are to adopt suitable implementation ordinances that put the
plan’s policies into force and effect.
Finding: The Springfield Development Code is a key mechanism used to implement the goals and policies
of the City’s adopted comprehensive plans, particularly the Metro Plan. The purpose of this amendment
is to move the street design standards, adopted into the EDSPM in 2012 to implement the Phase I GRP
Transportation Chapter polices, to the Development Code. As demonstrated for Criterion A.1. above,
the proposed amendment is consistent with the Metro Plan and does not affect City ordinances,
policies, plans, and studies adopted to comply with Goal 2 requirements.
Finding: Goal 3 – Agricultural Land – applies to areas subject to farm zoning that are outside
acknowledged urban growth boundaries (UGBs). The City has an acknowledged UGB and therefore
consistent with the express language of the Goal, does not have farm land zoning within its jurisdictional
boundary. Consequently, and as expressed in the text of the Goal, Goal 3 is not applicable.
Finding: Goal 4 – Forest Land – applies to timber lands zoned for that use that are outside
acknowledged UGBs with the intent to conserve forest lands for forest uses. The City has an
acknowledged UGB and does not have forest zoning within its incorporated area. Consequently, and as
expressed in the text of the Goal, Goal 4 is not applicable.
Finding : Goal 5 – Open Spaces, Scenic and Historic Areas, and Natural Resources – applies to more than
a dozen natural and cultural resources such as wildlife habitats and wetlands, and establishes a process
for each resource to be inventoried, evaluated and protected as applicable. The proposed amendment
would not circumvent other code provisions for the protection of natural resources. Therefore, this
action does not alter the City’s acknowledged compliance with Goal 5.
Finding: Goal 6 – Air, Water and Land Resources Quality – applies to local comprehensive plans and the
implementation of measures consistent with state and Federal regulations on matters such as clean air,
clean water, and preventing groundwater pollution. The amendment to SDC Section 3.4-200 does not
repeal, replace or void existing Metro Plan policy or Development Code regulations with respect to any
identified air, water or land resource issues. Therefore, this action does not alter the City’s
acknowledged compliance with Goal 6.
Attachment 2, Page 7 of 10
Exhibit A 7 of 10
Page 8 of 10
Finding: Goal 7 – Areas Subject to Natural Disasters and Hazards – applies to development in areas
subject to natural hazards such as floodplains and potential landslide areas. The City has inventoried
areas subject to natural hazards, and the proposed amendment to SDC 3.4-200 does not remove or
exempt compliance with Code standards that apply to development within these hazard areas.
Therefore, this action has no effect on the City’s acknowledged compliance with Goal 7.
Finding: Goal 8 – Recreational Needs – requires communities to evaluate their recreation areas and
facilities and to develop plans to address current and projected demand. The provision of recreation
services within Springfield is the responsibility of Willamalane Park & Recreation District. Willamalane
has an adopted 20-Year Comprehensive Plan for the provision of park, open space and recreation
services for Springfield which the City has co-adopted. The proposed amendment to SDC 3.4-200 does
not alter or conflict with the policies or provisions in the Park and Recreations Comprehensive Plan or
with Willamalane’s responsibility to plan for or provide recreational programs or facilities. Therefore,
this action has no effect on the City’s acknowledged compliance with Goal 8.
Finding: Goal 9 – Economic Development – addresses diversification and improvement of the economy.
The proposed amendment to SDC 3.4-200 does not have an impact on the City’s supply of industrial or
commercial lands, and the amendment does not affect City policies, plans, and studies for economic
development. Therefore, this action is consistent with the City’s acknowledged compliance with Goal 9.
Finding: Goal 10 – Housing – applies to the planning for and provision of needed housing types. The
proposed amendment would not affect City ordinances, policies, plans, and studies adopted to comply
with Goal 10 requirements. Therefore, this action is consistent with the city’s acknowledged compliance
with Goal 10.
Finding: Goal 11 – Public Facilities and Services – addresses the efficient planning and provision of
public services at the appropriate type and level to support planned development. The proposed
amendment does not reduce any requirements for the extension or provision of public facilities or
services during development review procedures and will have no effect on adopted and acknowledged
public facilities plans. Therefore, this action has no effect on the City’s acknowledged compliance with
Goal 11.
Finding: Goal 12 – Transportation – applies to the provision of a “safe, convenient and economic
transportation system”. The Transportation Planning Rule (OAR 660-012-0060) requires that proposed
amendments to a comprehensive plan or land use regulation consider potential impacts to existing or
planned transportation facilities “unless the amendment is allowed under section (3), (9) or (10) of this
rule.”
Finding: OAR 660-012-0060 (10) states that a local government may amend a land use regulation
without applying performance standards related to motor vehicle traffic congestion, delay, or travel
time if the amendment affects only land entirely within a multi-modal mixed-use area (MMA) and is
consistent with the definition and function of the MMA.
Finding: A key objective of the Phase I GRP is to create a highly pedestrian-oriented environment to
support future mixed-use development and increase the ease and convenience of walking. Associated
policies and implementation strategies to foster this pedestrian-friendly environment are through
decreasing automobile speeds in neighborhoods, focusing most through-traffic on arterials, aligning
streets to reduce the distance that pedestrians have to walk to a crosswalk to safely cross a street,
Attachment 2, Page 8 of 10
Exhibit A 8 of 10
Page 9 of 10
allowing sight lines and connections to destinations that attract pedestrian activity, and minimizing the
real and perceived distances between development, parks, and greenway amenities. Policies also
include features such as wide setback sidewalks with minimal interruptions in the flow or grade of
pedestrian travel, interesting street furniture and public art, pedestrian-scale lighting, street trees, and
other green street elements that also make the pedestrian experience safe, comfortable, and attractive.
Finding: In addressing the LUBA Remand of the Phase I GRP, the City established the MMA designation
for the Glenwood Riverfront (Springfield Ordinance 6316), which was acknowledged by DLCD on May 9,
2014. The subject Development Code amendment applies to the streets in the Glenwood Riverfront and
thus falls entirely within the MMA boundary. Further, the subject street standards are intended to
support the development of an interconnected multi-modal grid network that supports high-density
mixed-use development. This street grid will enhance multi-modal circulation, disperse traffic, and
facilitate walking and biking with wide, setback sidewalks, bike facilities, pedestrian-oriented street
crossings, street trees, pedestrian scale lighting, on street parking. Therefore, the proposed amendment
is consistent with the definition and function of the MMA.
Finding: The level of development currently permitted through existing zoning regulations will remain
the same as a result of this amendment. Therefore, the amendments are consistent with Statewide
Planning Goal 12.
Finding: Goal 13 – Energy Conservation – states that “land and uses developed on the land shall be
managed and controlled so as to maximize the conservation of all forms of energy, based upon sound
economic principles”. The proposed text amendment does not affect the City’s ordinances, policies,
plans, or studies adopted to comply with Goal 13 requirements. Therefore, this action has no effect on
the City’s acknowledged compliance with Goal 13.
Finding: Goal 14 – Urbanization – requires cities to estimate future growth rates and patterns and to
incorporate, plan, and zone enough land to meet the projected demands. The amendment to SDC
Section 3.4-200 does not repeal, replace, or void existing Metro Plan policy or change land use
designations or Development Code regulations with respect to Springfield’s growth management or
annexation. Therefore, this action has no effect on the City’s acknowledged compliance with Goal 14.
Finding: Goal 15 – Willamette River Greenway – establishes procedures for administering the 300 miles
of greenway that borders the Willamette River. The proposed text amendment does not change or
nullify the requirement for development proposals to comply with the City’s existing Willamette River
Greenway regulations. Therefore, this action has no effect on the City’s acknowledged compliance with
Goal 15.
Finding: Goals 16-19 – Estuarine Resources; Coastal Shorelands; Beaches and Dunes; and Ocean
Resources – these goals do not apply to land within the Willamette Valley, including Springfield.
Therefore, Goals 16-19 do not apply in Springfield or to land use regulations adopted in Springfield.
Conclusion: The code amendment complies with applicable Statewide Planning Goals and therefore
meets Criterion A.3.
Conclusion and Recommendation
Based on the findings above and the criteria of SDC 5.6-115 for approving amendments to the
Springfield Development Code, the proposed text amendment to Section 3.4-200 is consistent with
Attachment 2, Page 9 of 10
Exhibit A 9 of 10
Page 10 of 10
these criteria, and based on these findings, the Planning Commission may forward a recommendation of
approval for this proposal to the City Council.
Attachment 2, Page 10 of 10
Exhibit A 10 of 10
Exhibit B
Proposed Amendment to Springfield Development Code
The amendments are shown in legislative format (deleted text with strike-thru red font and new text
with underline red font). Commentary is shown in purple italics font.
Chapter 3 Land Use Districts
3.4-200 Glenwood Riverfront Mixed-Use Plan District
Commentary: Remove references to the Engineering Design Standards and Procedures Manual (EDSPM)
and replace with Development Code references.
3.4-230 Glenwood Riverfront Mixed-Use Plan District Modifications
Glenwood Riverfront Mixed-Use Plan District modifications shall be categorized as Minor and Major.
A. A Minor Glenwood Riverfront Mixed-Use Plan District modification shall be subject to a
Director’s decision under either a Type I or a Type II review procedure. Minor Modifications are
those that result in any of the following:
1. Type I Review Procedure.
a. Changes related to the streetscape, the visual elements of a street, including,
but not limited to: the street surface; adjacent buildings; street furniture; and
trees and open spaces that combine to form the street's character in a manner
consistent with the Glenwood Refinement Plan Transportation Chapter policies
and implementation strategies and the Springfield Engineering Design Standards
and Procedures Manual.
b. A change in the design of a street in a manner consistent with the Glenwood
Refinement Plan Transportation Chapter policies and implementation strategies
and the Springfield Engineering Design Standards and Procedures Manual
Subsection 3.4-270A.3.
…[no intervening amendments]…
E. Major and Minor Glenwood Riverfront Mixed-Use Plan District Plan modification criteria. The
proposed modification shall:
1. Maintain the integrity of the north/south east-west street grid that provides multi-
modal internal circulation in the Franklin Riverfront and the future internal street layout
in the McVay Riverfront established by the Glenwood Refinement Plan Transportation
Chapter policies and implementation strategies, or the proposed modification shall be
necessary to adjust to physical constraints evident on the property including, but not
limited to:
Exhibit B 1 of 26
Attachment 3, Page 1 of 26
a. Hillsides;
b. Protecting significant natural features such as trees, rock outcroppings,
wetlands, or similar natural features; or
c. Adjusting existing property lines between proposed development area
boundaries.
2. Not significantly affect the landscaping, stormwater management, design, circulation
and access policies and implementation strategies in the applicable chapters of the
Glenwood Refinement Plan, Subsection 3.4-270A.3, or the Springfield Engineering
Design Standards and Procedures Manual.
Commentary: Remove references to the EDSPM and replace with Development Code references and
insert text from EDSPM Appendix 1A into Development Code.
3.4-270 Public and Private Development Standards
A. Public Streets, Alleys and Sidewalks.
1. Public Streets, alleys and sidewalks in the Glenwood Riverfront shall be as described in
the Glenwood Refinement Plan Transportation Chapter and designed and constructed
as specified in Subsection 3.4-270A.3 and the Springfield Engineering Design Standards
and Procedures Manual.
2. Applicable Glenwood Refinement Plan Transportation Policies and Implementation
Strategies shall be as specified in Appendix 3. The following is an overview of the
Glenwood Riverfront street network:
a. Franklin Riverfront Arterial Street. Franklin Boulevard shall be designed and
constructed as a hybrid multi-way boulevard.
b. Franklin Riverfront Local Street Network. A grid street pattern shall be designed
and constructed to include north-south through streets, park block streets, a
riverfront street, east-west service streets and alleys as specified in Subsection
3.4-270A.2.d.
c. Franklin Riverfront Block Length. Block length and width shall range from 250 to
350 feet.
EXCEPTION: Park block width (east-west) shall be a minimum of 150 feet.
However, the City and Willamalane will seek to minimize park block width prior
to the submittal of development applications as specified in Subsection 3.4-
270J.4.b.
d. Franklin Riverfront Mid-block Connectors/Alleys. Mid-block connectors or alleys
shall be designed and constructed either mid-way or every 250 to 350 feet in
Exhibit B 2 of 26
Attachment 3, Page 2 of 26
those larger blocks that exceed the block length standard specified in
Subsection 3.4-270A.2.c. In addition, alleys shall be limited to the grid street
pattern area described in Subsection 3.4-270A.2.b., and shall be used as
specified in Subsection 3.4-270G.11.
e. In the Franklin Riverfront, the developer shall coordinate with the City to allow
temporary access to properties prior to the establishment of the required grid
street system. Temporary access will be reviewed and approved during the Site
Plan Review process. As the grid system is established, the developer shall be
required to remove the temporary access at their own expense, while
establishing the required grid street system as specified in the Glenwood
Refinement Plan and Subsection 3.4-270A.3the Springfield Engineering Design
Standards and Procedures Manual.
f. McVay Riverfront Arterial Street. McVay Highway shall be designed and
constructed as a multi-modal facility. In consideration of significant
infrastructure improvements required along the frontage of McVay Highway
and the uncertainty as to the timing of these improvements, an Improvement
Agreement may be accepted in lieu of completing frontage improvements at the
time of development approval. In the case of property requiring annexation to
the City, the terms of making the improvements shall be described in the
Annexation Agreement.
g. McVay Riverfront Local Street Network.
i. Primary access from McVay Highway shall be from east-west streets in
the vicinity of East 19th Avenue, Nugget Way and the south end of
Glenwood.
ii. A grid street pattern may be accomplished by incorporating north-south
streets as specified in Subsection 3.4-270A.2.b. or by shared private
driveways.
3. Construction and design of Ppublic streets, alleys, and sidewalks shall be designed and
constructed as specified in the following street cross-section standards and in the
Springfield Engineering Design Standards and Procedures Manual:.
a. Riverfront Street
Exhibit B 3 of 26
Attachment 3, Page 3 of 26
i. Riverfront Street with Parallel Parking
(a) The street shall be two way.
(b) There shall be a minimum 7’ setback sidewalk on each side of
the street.
(c) There shall be a minimum 7’ amenity zone (elements in an
amenity zone are street trees, plants, parking meters, street lights,
street furniture, art, etc.) between the curb and sidewalk on the
south side of the street.
(d) There shall be a minimum 7’ amenity zone between the travel
way and sidewalk on the north side of the street.
(e) There shall be decorative street lighting.
(f) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(g) Decorative bollards shall be used at the curb returns of the
raised intersections.
(h) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
Exhibit B 4 of 26
Attachment 3, Page 4 of 26
(i) Parking bulb-outs shall extend 2’ out from the parking striping.
(j) Parallel parking stall widths shall be 7’ wide.
(k) Parking shall be installed on the south side of the street.
(l) Parking shall not be installed on the north side of the street.
(m) Travel lanes shall be 10’ wide.
Exhibit B 5 of 26
Attachment 3, Page 5 of 26
Figure 3.4-A1
Exhibit B 6 of 26
Attachment 3, Page 6 of 26
ii. Riverfront Street with Angled Parking
(a) The street shall be two way.
(b) There shall be a minimum 7’ setback sidewalk on both sides of
the street.
(c) There shall be a minimum 7’ amenity zone (elements in an
amenity zone are street trees, plants, parking meters, street lights,
street furniture, art, etc.) between the curb and sidewalk on the
south side of the street.
(d) There shall be a minimum 7’ amenity zone between the travel
way and sidewalk on the north side of the street.
(e) There shall be decorative street lighting.
(f) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(g) Decorative bollards shall be used at the curb returns of the
raised intersections.
(h) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
(i) Parking bulb-outs shall extend 2’ out from the angled parking
striping.
(j) The angled parking dimensions from the Springfield
Development Code shall be used.
(k) Parking shall be installed on the south side of the street.
(l) Parking shall not be installed on the north side of the street.
(m) Travel lanes shall be 10’ wide.
Photo Source: Corvallis Riverfront, Google Maps
Exhibit B 7 of 26
Attachment 3, Page 7 of 26
Figure 3.4-A2
Exhibit B 8 of 26
Attachment 3, Page 8 of 26
iii. Riverfront Street with Reversed Angled Parking
(a) The street shall be two way.
(b) There shall be a minimum 7’ setback sidewalk on both sides of
the street.
(c) There shall be a minimum 7’ amenity zone between the curb
and sidewalk on the south side of the street.
(d) There shall be a minimum 7’ amenity zone between the travel
way and sidewalk on the north side of the street.
(e) There shall be decorative street lighting.
(f) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(g) Decorative bollards shall be used at the curb returns of the
raised intersections.
(h) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
(i) Parking bulb-outs shall extend 2’ out from the reverse angled
parking striping.
(j) The reverse angled parking dimensions from the Springfield
Development Code shall be used.
(k) Parking shall be installed on the south side of the street.
(l) Parking shall not be installed on the north side of the street.
(m) Travel lanes shall be 10’ wide.
Photo Source: David Dewitte, The Gazette
Exhibit B 9 of 26
Attachment 3, Page 9 of 26
Figure 3.4-A3
Exhibit B 10 of 26
Attachment 3, Page 10 of 26
b. Park Block Street
i. Park Block Street with Angled Parking on One Side of the Street
(a) The street shall be one way.
(b) There shall be a minimum 7’ setback sidewalk adjacent to the
development.
(c) There shall be a minimum 7’ amenity zone on the Development
side of the street between the curb and sidewalk. Appurtenances
may include trees in tree wells, bicycle parking, tables, benches,
street lights, landscaping, public art, etc.
(d) There shall be decorative street lighting.
(e) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(f) Decorative bollards shall be used at the curb returns of the
raised intersections.
(g) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
Photo Source: Corvallis Riverfront, Google Maps
Exhibit B 11 of 26
Attachment 3, Page 11 of 26
(h) The park block from curb to curb shall be a minimum of 150’.
(i) The angled parking dimensions from the Springfield
Development Code shall be used.
(j) Parking bulb-outs shall extend 2’ out from the angled parking
striping.
(k) Angled parking shall only be on one side of the street.
(l) Storm water treatment shall be installed between the curb and
sidewalk. It shall treat all impervious surfaces that are in the public
right of way and shall be sized accordingly.
(m) There shall be a minimum 8’ sidewalk between the stormwater
treatment and park block.
(n) The travel lane shall be 10’ wide.
Exhibit B 12 of 26
Attachment 3, Page 12 of 26
Figure 3.4-B1
Exhibit B 13 of 26
Attachment 3, Page 13 of 26
ii. Park Block Street with Parallel Parking on Both Sides of the Street
(a) The street shall be one way.
(b) There shall be a minimum 7’ setback sidewalk adjacent to the
development.
(c) There shall be a minimum 7’ amenity zone on the Development
side of the street between the curb and sidewalk. Appurtenances
may include trees in tree wells, bicycle parking, tables, benches,
street lights, landscaping, public art, etc.
(d) There shall be decorative street lighting.
(e) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(f) Decorative bollards shall be used at the curb returns of the
raised intersections.
(g) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
(h) The park block from curb to curb shall be a minimum of 150’.
(i) Parking bulb-outs shall extend 2’ out from the parking striping.
(j) Bulb-outs should be staggered to create the narrow travel way.
(k) Parallel parking stall widths shall be 7’ wide.
(l) Storm water treatment shall be installed between the curb and
adjacent sidewalk. It shall treat all impervious surfaces that are in
the public right of way and shall be sized accordingly.
(m) There shall be a minimum 8’ sidewalk between the storm water
treatment and park block.
(n) The travel lane shall be 10’ wide.
(o) A 2’ paved pedestrian travel way shall be between the parking
lane and the storm water treatment.
Photo Source: ??
Exhibit B 14 of 26
Attachment 3, Page 14 of 26
Figure 3.4-B2
Exhibit B 15 of 26
Attachment 3, Page 15 of 26
iii. Park Block Street with Parallel Parking on One Side of the Street
(a) The street shall be one way.
(b) There shall be a minimum 7’ setback sidewalk adjacent to the
development.
(c) There shall be a minimum 7’ amenity zone on the Development
side of the street between the curb and sidewalk. Appurtenances
may include trees in tree wells, bicycle parking, tables, benches,
street lights, landscaping, public art, etc.
(d) There shall be decorative street lighting.
(e) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(f) Decorative bollards shall be used at the curb returns of the
raised intersections.
(g) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
(h) The park block from curb to curb shall be a minimum of 150’.
(i) Parking bulb-outs shall extend 2’ from the parking striping.
(j) Parallel parking stall widths shall be 7’ wide.
(k) Storm water treatment shall be installed between the curb and
sidewalk. It shall treat all impervious surfaces that are in the public
right of way and shall be sized accordingly.
(l) There shall be a minimum 2’ paved walking width between the
parking and storm water treatment area.
(m) There shall be a minimum 8’ sidewalk between the storm water
treatment and park block.
(n) The travel lane shall be 10’ wide.
Photo Source: ??
Exhibit B 16 of 26
Attachment 3, Page 16 of 26
Figure 3.4-B3
Exhibit B 17 of 26
Attachment 3, Page 17 of 26
c. Collector Street
i. Collector Street with Buffered Bike Lane
(a) The street shall be two way.
(b) There shall be a minimum 7’ setback sidewalk adjacent to the
development.
(c) There shall be a minimum 7’ amenity zone between the curb
and sidewalk. Appurtenances may include trees in tree wells,
bicycle parking, tables, benches, street lights, landscaping, public
art, etc.
(d) There shall be decorative street lighting.
(e) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(f) Decorative bollards shall be used at the curb returns of the
raised intersections.
(g) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
(h) Parking bulb-outs shall be a minimum of 9’ wide.
Photo Source: Friends of Holgate
Exhibit B 18 of 26
Attachment 3, Page 18 of 26
(i) Parallel parking stall widths shall be 7’ wide.
(j) Travel lane shall be 10’ wide.
(k) Bicycle lanes shall be 6’ wide with a striped 2’ buffered area
between the bicycle lane and the travel lane and a striped 2’
buffered area between the bicycle lane and parking lane.
Exhibit B 19 of 26
Attachment 3, Page 19 of 26
Figure 3.4-C1
Exhibit B 20 of 26
Attachment 3, Page 20 of 26
ii. Collector Street with Separated Bike Lane
(a) The street shall be two way.
(b) There shall be a minimum 7’ setback sidewalk adjacent to the
development.
(c) There shall be a minimum 7’ amenity zone between the curb
and sidewalk. Appurtenances may include trees in tree wells,
bicycle parking, tables, benches, street lights, landscaping, public
art, etc.
(d) There shall be decorative street lighting.
(e) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(f) Decorative bollards shall be used at the curb returns of the
raised intersections.
(g) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
(h) Parking bulb-outs shall extend 2’ out from the parking striping.
(i) Parallel parking stall widths shall be 7’ wide.
(j) Travel lane shall be 10’ wide.
(k) Bicycle lanes shall be 6’ wide with a 3’ buffered area between
the bicycle lane and the parking lane and elevated to the same
elevation as the sidewalk to not be at the same grade as the parking
lane.
Photo Source: www.bikelongbeach.org
Exhibit B 21 of 26
Attachment 3, Page 21 of 26
Figure 3.4-C2
Exhibit B 22 of 26
Attachment 3, Page 22 of 26
d. Typical Street
i. Typical Street with Parallel Parking
(a) The street shall be two way.
(b) There shall be a minimum 7’ setback sidewalk on each side of
the street.
(c) There shall be a minimum 7’ amenity zone between the curb
and sidewalk. Appurtenances may include trees in tree wells,
bicycle parking, tables, benches, street lights, landscaping, public
art, etc.
(d) There shall be decorative street lighting.
(e) All intersections shall be raised with a distinctive stamped
pattern and vibrant color.
(f) Decorative bollards shall be used at the curb returns of the
raised intersections.
(g) All pedestrian crosswalks shall be raised crosswalks with a
distinctive stamped pattern and vibrant color.
Photo Source: Kristi Krueger at Orenco Station
Exhibit B 23 of 26
Attachment 3, Page 23 of 26
(h) Parking bulb-outs shall extend 2’ out from the parking striping.
(i) Parallel parking stall widths shall be 7’ wide.
(j) Travel lanes shall be 10’ wide.
Exhibit B 24 of 26
Attachment 3, Page 24 of 26
Figure 3.4-D1
Exhibit B 25 of 26
Attachment 3, Page 25 of 26
Commentary: Incorporate references to the Development Code standards proposed for adoption
through the TSP Implementation Project.
…[no intervening amendments]…
D. Bicycle Facilities. Bicycle facilities shall be required: off-street as part of the multi-use path as
specified in Subsection 3.4-270E.; on-street; or as part of a mid-block connector.
1. Bicycle facilities in the Glenwood Riverfront shall be as described in the Glenwood
Refinement Plan Transportation and Open Space Chapters.
2. Applicable Glenwood Refinement Plan Transportation Policies and Implementation
Strategies shall be as specified in Appendix 3.
3. Bicycle facilities including, but not limited to: mid-block connectors and on-street
markings, shall be designed and constructed as specified in Subsection 4.2-150, the
Springfield Engineering Design Standards and Procedures Manual and the Springfield
Standard Construction Specifications.
4. Bicycle parking shall be as specified in Table 3.4-2.
E. Multi-Use Path. The multi-use path shall be part of the riverfront linear park along the entire
length of the Willamette River in the Glenwood Riverfront. The multi-use path shall provide
opportunities for active and passive recreation activities, including but not limited to: walking;
jogging; running; cycling; inline skating; and nature watching. The multi-use path shall be
located at the outermost edge of the 75 foot-wide Greenway Setback Line/Riparian Setback to
the maximum extent practicable.
1. The multi-use path shall be as described in the Glenwood Refinement Plan
Transportation and Open Space Chapters.
2. Applicable Glenwood Refinement Plan Transportation and Open Space Chapter policies
and implementation strategies shall be as specified in Appendix 3.
3. The multi-use path shall be designed and constructed as specified in Subsection 4.2-150,
the Springfield Engineering Design Standards and Procedures Manual and the
Springfield Standard Construction Specifications.
Exhibit B 26 of 26
Attachment 3, Page 26 of 26