HomeMy WebLinkAbout2015 04 21 AIS PC Willamatte Greenway SetbackCOMMUNICATION MEMORANDUM Meeting Date: 4/21/2015
Meeting Type: Work Session Staff Contact/Dept.: Mark Metzger/DPW
Staff Phone No: 541-726-3775
Estimated Time: N/A S P R I N G F I E L D PLANNING COMMISSION Council Goals: Mandate
ITEM TITLE: ESTABLISHING THE WILLAMETTE RIVER GREENWAY SETBACK LINE IN
GLENWOOD
ACTION REQUESTED:
No action requested at this work session. On May 5th the Planning Commission and Hearings Official will meet in joint session to consider a proposal to adopt a “Greenway
Setback Line” for properties in Glenwood where this line has yet to be established. Staff will provide an overview of Springfield’s Willamette Greenway policies and responsibilities
and will provide a preview of the proposed Glenwood Willamette River Greenway Setback Line.
ISSUE STATEMENT:
Statewide Planning Goal 15—Willamette Greenway, requires local governments to incorporate Greenway objectives into comprehensive plans and implementing ordinances.
Part of this responsibility includes the delineation of a “Greenway Setback Line” that establishes an uninterrupted line paralleling the river within which only water-related or
water-dependent uses are allowed. The Planning Commission and Hearings Official have both approved delineations of the Greenway Setback Line for various private and public
properties with Willamette River frontage. On May 5th, the City of Springfield, in collaboration with several property owners in Glenwood, will propose a Greenway Setback
line for all remaining properties in Glenwood that do not have an established setback line.
ATTACHMENTS: 1. Glenwood Greenway Boundary and Setback Line (Powerpoint presentation in a .pdf file
format) 2. Proposed Glenwood Greenway Setback Line (Aerial map showing the line in segments
starting at the I-5 bridges and moving east parallel to the river and to Franklin Blvd.)
DISCUSSION: On September 8, 2014 the Springfield City Council directed staff to work with property owners to complete the Greenway Setback line for the entire Glenwood Riverfront in
advance of development. The City hired Schirmer/Satre Group to assist with the field work and analysis required to recommend a Greenway Setback line for those remaining properties that do not have established setbacks.
Beginning in January, staff sent letters and made personal contacts with owners, encouraging their participation in the setback delineation project. In addition to two
mailings, staff conducted an open, drop-in meeting with interested owners to discuss the Greenway Setback and how it might affect their property. All of the affected properties south and west of the Springfield bridges are outside the city
limits and therefore the responsibility of the Hearings Official. The area beneath the bridges was annexed in 2005 and therefore the setback is the responsibility of the planning
commission.
Attachment 1 provides an overview of the Greenway Goal; Attachment 2 contains a series
of maps showing the proposed Greenway Setback Line for Glenwood.
Statewide Planning Goal 15—
Willamette River Greenway
Overview of Local Planning
Responsibilities Attachment 1-1
•The City of Springfield proposes to establish the “Willamette River
Greenway Setback Line” on all properties in the Glenwood area where the
setback has not already been established. The matter will be considered
by the Planning Commission in a joint public hearing with the Springfield
Hearings Official on May 5th.
•The purpose of this presentation is to review Springfield’s responsibilities
with respect to Statewide Planning Goal 15-Willamette River Greenway.
This material will be a review for some Commissioners, but will be a useful
primer for new Commission members.
•The properties to be considered on May 5th are located primarily outside
of the city limits. One lot, located beneath the Springfield bridges near the
entrance to Springfield’s downtown, is within the city limits and is within
the Commission’s jurisdiction. The Greenway Setback for properties
outside of the city limits will be determined by the Hearings Official. Attachment 1-2
Properties without Established Greenway Setbacks
Planning
Commission
Hearings
Official Attachment 1-3
As you view this presentation, the following terms will be important:
–Willamette River Greenway Boundary
–Willamette River Greenway Setback
–75-foot Water Quality/Natural Resources Development Setback
These terms are easily confused but are important to distinguish as the
Commission prepares for the hearing on May 5th. The Planning
Commission will approve the location for the Greenway Setback at that
meeting. Attachment 1-4
Establishment of the Greenway Program
•The Willamette River Greenway Program, established by the 1967
Oregon Legislature, is a cooperative state and local government
effort to maintain and enhance the scenic, recreational, historic,
natural and agricultural qualities of the Willamette River and its
adjacent lands.
•In 1973 the Legislature passed the Willamette River Greenway Act,
which established ties to the comprehensive state land use law
(Oregon Senate Bill 100) that passed that same year.
•In 1975, the Oregon Department of Land Conservation and
Development included the Willamette River Greenway as one of
nineteen standards for statewide planning, requiring that public
access, native vegetation, and scenic views be considered when
planning new developments.
Attachment 1-5
Local Implementation of Goal 15—Willamette
River Greenway
•Statewide Planning Goal 15 requires local governments to establish
a Greenway Boundary within their jurisdiction. Generally, the
Greenway Boundary is set 150-feet from the river, and expands to
include public lands.
•Local governments are also charged with determining allowed uses
within the Greenway Boundary and to identify potential acquisition
areas for public use and conservation.
•Local jurisdictions retain the primary responsibility for
implementation of the Willamette River Greenway Goal.
Attachment 1-6
•The Metro Plan, Springfield’s comprehensive plan, contains a
section called, the Willamette River Greenway, River Corridors, and
Waterways Element. This section includes policies for
implementation of Goal 15.
•The Greenway Boundary within the Eugene-Springfield area was
approved by the state in September 1982. The Metro Plan also
established planned land uses along the river within the Boundary.
•Within Glenwood, the Greenway Boundary is set about 150-feet
inland from the ordinary low water mark of the river. Across the
river from Glenwood, the Greenway Boundary expands to include
Alton Baker Park, Island Park and further up stream, Dorris Ranch,
Mt Pisgah, and Clearwater Park.
Attachment 1-7
Willamette River Greenway Boundary
within Springfield’s Planning Jurisdiction
Dorris
Ranch
Clearwater
Park Mt. Pisgah and
Bufford Park
Island Park
Glenwood Attachment 1-8
The Metro Plan allows for a variety of uses within the
Greenway Boundary
“Land along the Greenway in private ownership is in a variety of uses,
some of which appear to provide greater opportunity than others for
public access and enjoyment. Residential uses along the Greenway can
provide the residents with access to the river area. Certain commercial
uses, such as restaurants, can allow customers visual enjoyment of the
Greenway.”
Other uses, such as the many industrial uses, would appear to provide
little if any opportunity for access or enjoyment of the Greenway. This
is evidenced by much of the existing industrial development along the
Willamette River in the Glenwood area.”
Metro Plan Willamette Greenway Element, pg. III D-1 Attachment 1-9
Springfield’s Greenway Policies in the Springfield
Development Code (SDC)
•SDC 3.3-300—establishes the Willamette Greenway (WG) Overlay District
to protect and preserve natural scenic, historic and recreational qualities
of lands along the Willamette River. This overlay district applies within the
Willamette Greenway area [as defined by the Greenway Boundary].
•Uses allowed in the WG Overlay District are the same as those in the
underlying zoning districts. SDC 3.3-320. Zoning along the river in
Glenwood is a mix of residential, commercial and employment uses as
layed out in the Glenwood Riverfront Plan.
•SDC 3.3-325 sets standards for establishing the Greenway Setback Line.
The Greenway Setback Line determines how close urban development can
approach the river. The location of the setback is based on a variety of
criteria.
Attachment 1-10
•A Greenway Setback Line is established to protect, maintain,
preserve and enhance the natural, scenic, historic and recreational
qualities of the Willamette Greenway.
•Only water-dependent or water-related uses are permitted
between the Willamette River and the Greenway Setback Line.
Prior land use decisions have recognized riverfront multi-use paths
as water related- water dependent uses.
•Establishment of this Setback Line may occur with or without a
request for development approval, but any request for
development approval on land without an established Setback Line
shall be accompanied by an application for establishment of the
Greenway Setback Line.
Greenway Setback Line SDC 3.3-325 Attachment 1-11
SDC 3.3-325 Standards for Establishing
the Greenway Setback
The Development Code states that the location of the Greenway
Setback Line shall be determined consistent with the following
standards derived from Statewide Planning Goal 15:
A. Local, regional and State recreational needs shall be provided for
consistent with the carrying capacity of the land. The possibility
that public recreation use might disturb adjacent property shall be
considered and minimized to the greatest extent possible.
B. Adequate public access to the river shall be provided.
C.Significant fish and wildlife habitats shall be protected.
D.Identified scenic qualities and view-points shall be preserved.
Attachment 1-12
E.The maintenance of public safety and protection of public and private property, especially from vandalism and trespass shall be provided for, to the maximum extent practicable. F.The natural vegetative fringe along the river shall be enhanced and protected to the maximum extent practicable. G.The location of known aggregate deposits shall be considered. H. Developments shall be directed away from the river to the greatest possible degree; provided, however, lands committed to urban uses shall be permitted to continue as urban uses, including port, public, industrial, commercial and residential uses, uses pertaining to navigational requirements, water and land access needs and related facilities.
Attachment 1-13
Balancing the standards used establish the
Greenway Setback
•Terms that require flexibility:
–“maximum extent practicable”
While not defined in Goal 15, staff understands the term to require
a balancing of factors so that each of the identified Willamette
Greenway criteria is met to the greatest extent possible without
precluding the planned use.
–“land committed to urban uses”
Goal 15 defines this to mean “those lands upon which the
economic, developmental and locational factors have, when
considered together, made the use of the property for other than
urban purposes inappropriate.”
Attachment 1-14
Other Ordinances Protecting the
Willamette River Corridor
• There are other setbacks and protections on the Willamette that will
overlap and may supercede the Greenway Setback Line.
•SDC 4.3-115—Water Quality Protection
Along all watercourses shown on the Water Quality Limited
Watercourse (WQLW) Map with average annual stream flow greater
than 1,000 cubic feet per second (CFS), the riparian area boundary
shall be 75 feet landward from the top of the bank.
•SDC 4.3-117—Natural Resource Protection Areas
The Willamette River (WA/WB) is a water quality limited watercourse
and is protected by a 75-foot development setback. Attachment 1-15
To Recap--
•The Greenway Boundary defines a 150-wide corridor along the
river which also takes in public lands. The Boundary delineates the
“side-boards” within which special Greenway standards are applied.
•The Greenway Setback Line is a development setback from the
river. The line is not a fixed distance. The line is established
through a balancing of economic, social and environmental
objectives. Only water-related, water dependent uses are allowed
between the setback line and the river.
•The Water Quality/ Natural Resource Setbacks are existing 75-foot
setbacks along the Willamette that define how close development
can come the river. These setbacks are not related to the
Willamette Greenway Boundary or Greenway Setback Line and in
fact, overlap them. Attachment 1-16
Excerpt of the Existing Greenway Boundary
and Greenway Setback Line in Glenwood
Dorris Ranch Historic Park
Glenwood Attachment 1-17
Attachment 2-1
Attachment 2-2
Attachment 2-3
Attachment 2-4
Attachment 2-5
Attachment 2-6