HomeMy WebLinkAbout2014 09 02 AIS RS DPW GRP Phase I AmendmentAGENDA ITEM SUMMARY Meeting Date: 9/2/2014
Meeting Type: Regular Meeting
Staff Contact/Dept.: Molly Markarian/DPW Staff Phone No: 541-726-4611
Estimated Time: 45 Minutes
S P R I N G F I E L D PLANNING COMMISSION Council Goals: Encourage Economic Development and
Revitalization through Community Partnerships
ITEM TITLE: Glenwood Refinement Plan Phase I Amendment
(Springfield File Nos. TYP414-00002 & TYP414-00004, Lane County File No. 509-PA14-05471)
ACTION
REQUESTED:
Conduct a public hearing to receive testimony on the proposed Glenwood
Refinement Plan and Springfield Development Code amendments. The Planning Commission is asked to forward recommendations to the Springfield City Council
and Lane County Board of Commissioners regarding co-adoption of a land use policy package that includes these amendments.
ISSUE STATEMENT: The City of Springfield and Lane County propose to amend: 1) The figures and text of the Transportation Chapter of the Glenwood Refinement
Plan, Phase 1 Update to: adjust the Franklin Boulevard Project concept currently in the Plan to match the proposed Project draft design; align the proposed Project draft
design so that its generally centered along the existing Franklin Boulevard
centerline; amend the Project envelope to extend five feet to the north and five feet to the south of the proposed draft design; and
2) Springfield Development Code, Appendix 3, Glenwood Refinement Plan
Policies and Implementation Strategies – Phase 1.
ATTACHMENTS: Attachment 1: Staff Report Attachment 2: Final Order
DISCUSSION:
At the time Council reviewed and adopted the 2012 Glenwood Refinement Plan
amendments to implement the Glenwood Riverfront District, the Franklin Boulevard project concept had not been refined through the NEPA process. Since
that time, staff and the consultant team have been through several design iterations
to avoid impacts as practical, while maintaining the integrity and purpose of the planned improvements. At the February 24, 2014 work session, Council reviewed
the final proposed Franklin Boulevard design and directed staff to develop and deliver a Franklin Boulevard improvement project based on that refined design.
As a normal and necessary part of developing and delivering the Franklin
Boulevard Project, on June 16, 2014, the Springfield City Council initiated an amendment to the Glenwood Refinement Plan to reflect more accurately the Project
that the City plans to deliver. These amendments will provide transparency to citizens, businesses and agency partners regarding planned improvements, while assisting all parties in the coordinated development of the Glenwood Riverfront
District.
STAFF REPORT and FINDINGS
CITY OF SPRINGFIELD, DEVELOPMENT AND PUBLIC WORKS DEPARTMENT
City of Springfield and Lane County
Proposed Glenwood Refinement Plan Amendment
Nature of Request: Staff is requesting that the Springfield Planning Commission
forward a recommendation of approval to the Springfield City Council and the Lane
County Board of Commissioners regarding proposed amendments to:
1) The figures and text of the Transportation Chapter of the Glenwood Refinement
Plan, Phase 1 Update (See Attachment 1) to: adjust the Franklin Boulevard Project
concept currently in the Plan to match the proposed Project draft design; align the
proposed Project draft design so that it’s generally centered along the existing
Franklin Boulevard centerline; amend the Project envelope to extend five feet to the
north and five feet to the south of the proposed draft design; and
2) Springfield Development Code, Appendix 3, Glenwood Refinement Plan Policies and
Implementation Strategies – Phase 1 (See Attachment 3). Both applications address
the same policies and implementation strategies and have the same criteria of
approval under Section 5.6-100; therefore, these applications will be reviewed
concurrently.
Springfield File Number:
TYP414-00002
TYP414-00004
Lane County File Number:
509-PA14-05471
BRIEF HISTORY OF THE GLENWOOD REFINEMENT PLAN (PHASE 1 UPDATE)
On February 25, 2008, the Springfield City Council directed staff to proceed with updating the
Glenwood Refinement Plan in phases.
The Phase 1 Update involved amendment of: the Eugene Springfield Metropolitan Area General Plan
(Metro Plan) diagram: the Glenwood Refinement Plan diagram and text; the Springfield
Development Code (SDC); and the Springfield Zoning Map.
Ballot Measure 56 notice of the public hearings regarding the Phase 1 Update was provided.
The public record contained complete documentation of the Phase 1 Update: Springfield file
numbers - LRP 2008-0017, TYP411-00006, TYP411-00005, TYP411-00007 and TYP311-00001 and
Lane County file number PA 11-5489.
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 Springfield
Ordinance 6279 and Lane County Ordinances PA 12888 and 3-12 to the Land Use Board of Appeals
(LUBA).
On July 12, 2013, LUBA rendered its decision (LUBA 2012/077/078/079). 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).
Notice of the public hearings regarding the LUBA Remand for the Phase 1 Update was provided.
Springfield File Numbers TYP411-0005, TYP411 00007, and TYP311-00001 and Lane County File
Number PA 11 -5489 contained supplemental findings and studies regarding Goals 9, 10, 12 and 15
that addressed the LUBA Remand, as well as additional findings in order to change the land use
designation and zoning of 14.29 acres of land from Employment Mixed-Use to Commercial Mixed-
Attachment 1, Page 1 of 37
Use on Assessor' s Maps and Tax Lots 18-03-03-11 01401, 17-03-34-440 3300, and 17-03-34-44
00301.
The public record contained complete documentation of the LUBA Remand.
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 (DLCD).
FRANKLIN BOULEVARD PROJECT DESCRIPTION/DESIGN HISTORY
Franklin Boulevard is the main arterial street connecting downtown Eugene, the University of Oregon,
and downtown Springfield. The EmX bus rapid transit (BRT), which connects downtown Eugene and
downtown Springfield, travels along Franklin Boulevard, serving the Glenwood area. As stated above,
the Phase 1 Update has been acknowledged by DLCD and includes a discussion of future improvements
to Franklin Boulevard and existing and proposed connecting local streets. Specifically, the
Transportation Chapter of the Glenwood Refinement Plan discusses modernization of Franklin
Boulevard by converting the existing roadway into a multi-modal boulevard with provisions for both
local and through traffic, pedestrians, bicycles and transit. The Franklin Boulevard Project will include
wide sidewalks well separated from through traffic; improved spacing for pedestrian crossings;
pedestrian refuges; calmed and slowed traffic; improved access to transit; and buffered bike lanes.
These Project features will improve the safety and attractiveness of the corridor for all users and
improve mobility for the population that lives and works in the corridor.
2002 – A “square about” or “double couplet” intersection for Franklin/McVay Hwy is approved as
proposed in the Glenwood Specific Area Plan. Four traffic lights and separation between each
direction both north/south and east/west. Long-term Franklin cross section identified at over twice
existing right of way.
2005 – STP-U Funding secured to further explore Franklin Boulevard improvement options.
2007/2008 – Conducted Franklin Boulevard Study with stakeholder involvement.
2009 – Council endorsement of Franklin Boulevard Study recommendation, directs staff to pursue
funding and Project development.
2010 – Franklin jurisdictional transfer dialogue begins.
2010 – Joint City of Springfield, City of Eugene, LTD and ODOT Franklin TIGER II grant submitted (not
awarded).
2010/2011 – $1.2 million NEPA funding package secured: STP-U, SEDA, Transportation SDCs, LTD.
2012 – ODOT IGA for Project NEPA documentation approved, consultant selected.
2012 – Council direction to pursue Categorical Exclusion (CE) with design refinements.
2012 – Glenwood Refinement Plan Phase 1 update approved, contains the Franklin Project concept
from the 2008 Study, and a larger Project ‘envelope’.
2013 – Franklin Boulevard right of way annexed to the city limits, facility remains ODOT.
April 2013 – NEPA Phase 1 Scan complete, issues reported in white paper. Decision to move into
Phase 2 and work to reduce impacts with further design refinements, complete draft environmental
baseline reports, prepare for meeting with FHWA on NEPA classification as a Categorical Exclusion or
Environmental Assessment.
Attachment 1, Page 2 of 37
September 2013 – ODOT Region 2 ‘SuperACT’ agrees to fund phase 1 construction with $6 million in
STIP Enhance dollars, City agrees to match with $3.6 million local dollars. Project construction now
in draft STIP.
October 2013 – NEPA Phase 2 issues reported to Council: alignment on existing centerline,
intersection design and EmX, how to reduce Project impacts. Initiated Project outreach to
businesses and property owners along corridor and within Project area of influence per NEPA.
February 2014 – NEPA Phase 2 sketch design and draft environmental baseline reports complete.
Council check-in on Project footprint and designs prior to meeting with FHWA and ODOT in March
for direction on possible Categorical Exclusion (CE).
March 2014 – Staff began a focused public outreach with NEPA design concept. The City is in the
process of procuring a contract for design, right-of-way and construction engineering services.
June 2014 – the Springfield City Council approved Resolution 2014-21 for the jurisdictional transfer
of Franklin Boulevard from ODOT to the City. The document has been signed by ODOT and will be
recorded at Lane County in early August.
PROCEDURAL REQUIREMENTS
SDC Section 5.6-100 Refinement Plans, Plan Districts and the Development Code-Adoption or
Amendment.
This Glenwood Refinement Plan Transportation Chapter and Springfield Development Code, Appendix 3
amendment applications were initiated as specified in SDC Section 5.6-105B. by the Springfield City
Council on June 16, 2014.
These applications are a Type IV procedure as defined in Section 5.1-140 of the Springfield Development
Code and will require:
1) Review and a recommendation by the Springfield Planning Commission (also acting on behalf of the
Lane County Planning Commission); and
2) Adoption of Ordinances by the Springfield City Council and the Lane County Board of
Commissioners.
SDC Section 5.2-115 Notice.
These Glenwood Refinement Plan Transportation Chapter and Springfield Development Code, Appendix
3 amendment applications are legislative land use decisions that require:
1) Mailed notice as specified in SDC Section 5.2-115A (a Ballot Measure 56 mailed notice has been
prepared similar to the notice utilized for the Phase 1 Update – see Goal 1 findings); and
2) Newspaper notice as specified in SDC Section 5.2-115B (see Goal 1 findings).
REFINEMENT PLAN AND SDC AMENDMENT REVIEW CRITERIA (Section 5.6-115)
“A. In reaching a decision on the adoption or amendment of refinement plans and this Code’s text,
the City Council shall adopt findings that demonstrate conformance to the following:”
Attachment 1, Page 3 of 37
Note: This Glenwood Refinement Plan (GRP) Transportation Chapter amendment application
involves only the realignment of the Franklin Boulevard Project envelope as described in the Revised
Conceptual Design 2014 discussed above and the revised description of the envelope. The concurrent
SDC Appendix 3 amendment application also involves only those GRP Transportation Chapter polices
and implementation strategies regarding the realignment of the Franklin Boulevard envelope.
“1. The Metro Plan;”
Findings
The Metro Plan:
Is the official long-range comprehensive policy document for metropolitan Lane County and the
cities of Eugene and Springfield;
Establishes general planning policies and land use allocations and serves as the basis of the
coordination of programs concerning the use and conservation of physical resources, furtherance of
assets, and development and redevelopment of the metropolitan area; and
Addresses all applicable Statewide Planning Goals either in the Plan itself, or through supporting
facility plans such as TransPlan, local TSPs, etc.
However, the Metro Plan diagram was amended as part of the adoption of the Phase 1 Update
(Springfield Ordinance 6279 and Lane County Ordinances PA 1288 and No. 3-12) to depict the changes in
the land use designations resulting from the update process. Metro Plan Transportation Policies F. 1, 3,
4, 7, 8, 10, 11, 13, 14, 17, 18, 19, 20, 22, 23, 24, 26, 27, 28, 29 and 37 were addressed as part of the
Phase 1 Update; the diagram designation changes are consistent with, and serve to implement these
policies.
While no amendment of the Metro Plan diagram or Glenwood Refinement Plan diagram is proposed as
part of these applications, the staff report for the Phase 1 Update Ordinance 6279, (EXHIBIT A-126-132)
specifically addressed (Metro Plan Transportation Policy F. 10 “Protect and manage existing and
future transportation infrastructure” Page III –F -7) as follows: “The proposed Glenwood Refinement
Plan Transportation Chapter discusses “Franklin Boulevard ….: From 2007-2008, Springfield worked with
its transportation partners, stakeholders, and consultants on the Franklin Boulevard Study. The Project
team analyzed an array of possible improvements to Franklin Boulevard to support redevelopment and
new investment in the Glenwood Riverfront. In early 2008, staff reviewed the preferred alternative, a
hybrid multi –way boulevard, with the Springfield Economic Development Agency, the Planning
Commission, and the City Council. On March 17, 2008, the City Council endorsed the hybrid multi –way
boulevard conceptual design and directed staff to refine the concept and integrate it into this Plan. A
hybrid multi –way boulevard is a street design that incorporates a blend of multi –way boulevard
concepts. A multi –way boulevard is a street design that accomplishes the fundamental goal of vehicular
movement and also creates a pedestrian friendly environment through on- street parking, slower traffic,
transit opportunities, multi –modal applications, and enabling buildings closer to or at the right –of –way
line. Since the Council’s endorsement in 2008, Springfield has sought Project funding through several
grants and other local and Federal funding sources. At the time this Plan was written, Springfield had
successfully secured funding for National Environmental Policy Act (NEPA) analysis and was in the
process of procuring contract services for the NEPA process. A full NEPA documentation process and
preliminary and final design are needed before the conceptual design is further refined and construction
can begin on the upgraded boulevard. Once the NEPA documentation is complete, a phased construction
Attachment 1, Page 4 of 37
schedule may be possible given the scope, size, and potential impacts along Franklin Boulevard. Potential
construction phases and access to existing businesses may be outlined during the NEPA analysis to help
mitigate potential impacts to adjacent businesses and property owners.” See also the Franklin
Boulevard Design Project history cited above.
However, because the Metro Plan itself and the referenced Metro Plan Transportation Policies contain
“general policies” they are not intended to be used to determine the specific location of the Franklin
Boulevard Project envelope that was included in the Glenwood Refinement Transportation Chapter.
That determination was based upon the Franklin Boulevard Conceptual Design (2012) that was
developed from the first phase of the NEPA process and which was based on Project #839 in TransPlan –
Franklin Boulevard, Jenkins Drive to Mill Street, Upgrade to urban facility – see also the discussion under
the Franklin Boulevard Design Project history cited above.
The adopted and acknowledged Glenwood Refinement Plan Transportation Chapter (pp. 59-61) is where
the specific Franklin Boulevard Project envelope language is stated:
“Objective:
Re- design and re- construct Franklin Boulevard as a multi -modal transportation facility to
support the redevelopment of Glenwood as envisioned in the Land Use Chapter and to
provide an improved arterial connection between Springfield and Eugene.
Policies & Implementation Strategies:
Partner with ODOT, Lane Transit District ( LTD), property owners, and private developers to fund,
dedicate right -of -way, design, and construct the upgraded Franklin Boulevard.
o During the land use review and approval process for properties fronting Franklin Boulevard,
establish design and exact right -of -way obligations, and require dedication of right -of -way
necessary to construct the hybrid multi -way boulevard.
Use a blend of hybrid multi -way boulevard designs as conceptually depicted in Figures 1 and 2 to
allow for flexibility in phasing design and construction as funding becomes available.
o Locate the right -of -way for the Franklin Boulevard improvements within the Corridor
Envelope described below to maximize the developable area between the upgraded facility
and the Willamette River, while also working to minimize impacts on existing buildings on the
south side of the upgraded facility.
o For the purpose of determining maximum necessary width, design the upgraded Franklin
Boulevard such that the maximum necessary width does not exceed: two eastbound and two
westbound through lanes; dedicated bus rapid transit facilities between Glenwood Boulevard
and McVay Highway; left turn lanes; a continuous and safe bicycle facility along both sides of
the boulevard; access lanes in specified locations separated by a landscaped median adjacent
to the through lanes; continuous, wide setback sidewalks buffered from traffic flow; on- street
parking on the north and south access lanes; and potential alternative bicycle /pedestrian
amenities or on- street parking on both the north and south side of the arterial sections.
Establish a Corridor Envelope, the approximate maximum width of which is 197 feet, and the
northern boundary of which is generally 20 feet. north of the northern right - of -way of Franklin
Boulevard ( McKenzie Highway) as documented by ODOT right –of-way files as of October 18,
2011. Within this Corridor Envelope, the maximum width of the hybrid multi -way boulevard is
approximately 172 feet, except where bump - outs may be required for transit stations or proposed
intersections. The corridor design envelope for the hybrid multi -way boulevard provides for
alignment flexibility during final design to address any geometric roadway design issues, and also
Attachment 1, Page 5 of 37
to provide design flexibility to minimize right -of -way impacts. The corridor design envelope and
planned upgraded Franklin Boulevard are described in more detail below and are graphically
approximated in Figure 3.
o Franklin Boulevard / Glenwood Boulevard Intersection and Franklin Boulevard/McVay Highway
Intersection: Preserve the area shown on Figure 3 for future intersection improvements to
provide corridor mobility and roadway access to the Glenwood Riverfront at both intersection
locations.
o Jenkins Drive to Glenwood Boulevard: The Corridor Envelope will narrow to approximately 110
feet west of the Glenwood Boulevard intersection, tapering to meet the facility cross - section
within the 1-5 right-of-way. This section of the facility is planned as a modern urban arterial.
o Glenwood Boulevard to Henderson Avenue: The Corridor Envelope will narrow to
approximately 151 feet between the intersections, flaring to accommodate the intersection
geometry at Glenwood Boulevard and matching the width of the facility at the Henderson
Avenue intersection. This section of the facility is planned as a modern urban arterial.
o Henderson Avenue to Mississippi Avenue: The Corridor Envelope is 197 feet wide. This section
of the facility is expected to include multi -way boulevard treatments on both the north and
south sides.
o Mississippi Avenue to McVay Highway: The Corridor Envelope Flares to match the facility at
Henderson and intersection geometry at McVay Highway. Between these two match lines the
Corridor Envelope is approximately .184 feet wide. This section of the facility is expected to
include multi -way treatments on the north side and modern urban arterial design on the south
side”….
Neither the Metro Plan diagram, the Metro Plan text, nor the Glenwood Refinement Plan diagram need
to be amended in order to adopt these proposals into the GRP.
Conclusion
All applicable sections of the Metro Plan were addressed in the applications comprising the Phase 1
Update that were acknowledged by DLCD on May 9, 2014. This proposal and its outcome do not require
Metro Plan amendments as the classification, description and purpose of the road project is unchanged;
the alignment of this project appears on the Metro Plan diagram as a general location in response to the
Plan’s 1”=7,000’ scale; therefore a five foot adjustment north and south is inconsequential and
impracticable to show at this scale; and no changes to Metro Plan land use designations are proposed.
No further discussion of Metro Plan policies is necessary as part of the proposed Glenwood Refinement
Plan Transportation Chapter amendment, the intent of which is only to realign the Franklin Boulevard
Project envelope and to revise the applicable text descriptions of the Project envelope. Criterion 5.6-
115A.1. has been met.
“2. Applicable State statutes; and”
Findings and Conclusion
All applicable Phase 1 Update State statutes were addressed in the applications comprising the
approved and acknowledged Phase 1 Update. There are no additional State statutes that apply to these
applications. No further discussion of applicable State statutes is necessary as part of the proposed
Glenwood Refinement Plan Transportation Chapter amendment, the intent of which is only to realign
the Franklin Boulevard Project envelope and to revise the applicable text descriptions of the Project
envelope. Criterion 5.6-115A.2. has been met.
Attachment 1, Page 6 of 37
“3. Applicable State-wide Planning Goals and Administrative Rules”.
STATEWIDE PLANNING GOAL 1 CITIZEN INVOLVEMENT
“To develop a citizen involvement program that insures the opportunity for citizens to be involved in
all phases of the planning process.”
Findings
The adopted and acknowledged Phase 1 Update had an extensive citizen involvement process over the
course of the 6½-year work task that included the formation of a Citizen Advisory Committee, mailed
(Ballot Measure 56) and newspaper notice; and numerous public hearings at the Planning Commission
and Elected Official (Springfield City Council and Lane County Board of Commissioners) level. During the
public hearing process, there was no testimony specifically regarding the location of the Franklin
Boulevard Project envelope.
For these applications:
1) DLCD was notified on July 30, 2014.
2) Mailed notice as specified in SDC Section 5.2-115A (Ballot Measure 56) was sent on August 22, 2014.
3) Newspaper notice as specified in SDC Section 5.2-115B. was published on August 22, 2014.
As discussed under the Franklin Boulevard Project history at the beginning of this staff report, design
options for this project have been proposed since 2002, within the context of the Phase 1 Update and
through the other public processes (See also Attachment 2).
Specifically, since 2008, several iterations of the Franklin Boulevard improvement design have been
reviewed and refined through the National Environmental Policy Act (NEPA) process to minimize Project
impacts.
The development of the Project’s design spanned three consecutive phases and resulted in three
conceptual designs for the proposed Project:
1) Glenwood Refinement Plan Phase 1 (Initial Conceptual Design): This is the design that was
developed as part of the approved and acknowledged Phase 1 Update.
The Initial Conceptual Design for Franklin Boulevard would have resulted in the following:
Two through traffic lanes on Franklin Boulevard in each direction (same as existing).
Intermittent local access roadways with parking paralleling Franklin Boulevard on both sides.
Landscaped medians separating the local access roadways from the through traffic lanes.
Widened sidewalks throughout the corridor.
Bike lanes in segments on Franklin Boulevard that would not include the local access roadways.
One exclusive BRT lane on Franklin Boulevard in each direction, located in the median.
Roundabouts at Glenwood Boulevard and McVay Highway.
Signalized intersections at Henderson Avenue and Mississippi Avenue.
The following summarizes the key right of way-related impacts that would have occurred under the
Initial Conceptual Design:
28 business relocations or displacements
5 residential relocations or displacements
Attachment 1, Page 7 of 37
Would require city acquisition of a portion of a parcel on which 1 eligible historic resource is
located.
2) Workshop Conceptual Design Phase: A workshop held in November 2012 resulted in a modified
design that was developed during 2013.
The Workshop Conceptual Design 2013 included the following general changes to the Initial
Conceptual Design:
Widening equally to the north and south sides of the existing Franklin Boulevard;
Reductions in the widths of various cross-sections to their minimum acceptable widths;
Inclusion of buffered bicycle lanes throughout the Project corridor;
Elimination of the median exclusive transit lanes;
Inclusion of a landscaped central median;
Inclusion of landscaped medians between the local access roadways and the through traffic
lanes; and
Roundabouts located at the following four intersections:
o Glenwood Boulevard;
o Henderson Avenue;
o Mississippi Avenue; and
o McVay Highway.
Environmental baseline work was used to identify potential impacts that would result from the
Workshop Conceptual Design 2013. The following summarizes the right of way-related impacts that
would occur under the Workshop Conceptual Design 2013:
31 business relocations or displacements
0 residential relocations or displacements
Would require city acquisition of a portion of a parcel on which 1 eligible historic resource is
located
3) Revised Conceptual Design Phase: In 2014, the revised Conceptual Design Phase focused on avoiding
or minimizing adverse impacts remaining within the Workshop Conceptual Design 2013. Once
baseline environmental impacts that would result from the Workshop Conceptual Design 2013 were
identified, each potentially impacted parcel was evaluated to determine possible refinements that
could avoid, minimize, or mitigate those impacts. Following are the key changes in the Revised
Conceptual Design 2014, compared to the Workshop Conceptual Design 2013:
shifting to the south in the vicinity of the Myrmo and Sons property to avoid use of any of the
parcel;
further reduction of business displacements due to shifting to the south in the vicinity of the
Myrmo and Sons property; and
parking and access changes.
The following summarizes the right of way-related impacts that would occur under the Revised
Conceptual Design 2014:
20 business relocations or displacements
0 residential relocations or displacements
0 impacts to eligible historic resources
These design changes have resulted in a Project footprint and Project envelope that differ from those
contained in the approved and acknowledged Phase 1 Update; will cause less right-of-way related
impacts to abutting properties; and form the basis for this proposed Glenwood Refinement Plan
Transportation Chapter amendment. The revised Conceptual Design (2014) is the Franklin Boulevard
Attachment 1, Page 8 of 37
final approved design and is the basis for this Glenwood Refinement Plan Transportation Chapter
amendment application. See Attachment 1.
The Franklin Boulevard Redevelopment Project, based upon the Revised Conceptual Design 2014 is
currently underway. City and consultant staff has met with affected property owners and tenants in
October 2013 and again in March 2014. Staff reviewed the draft Project Boundary with affected
property owners and tenants, spoke about overall Project details, and offered to add each individual to
the Project’s Interested Parties List. See Attachment 2 for the public involvement process for this
Project.
Conclusion
All applicable sections of Goal 1 were addressed in the applications comprising the Phase 1 Update that
were acknowledged by DLCD on May 9, 2014. Staff has also demonstrated how Goal 1 has/will be
addressed as part of this proposed Glenwood Refinement Plan Transportation Chapter amendment and
the Franklin Boulevard Redevelopment Project. Therefore, the proposed amendments of the Glenwood
Refinement Plan Transportation Chapter and Springfield Development Code, Appendix 3 are consistent
with Goal 1.
STATEWIDE PLANNING GOAL 2 LAND USE PLANNING
“To establish a land use planning process and policy framework as a basis for all decisions and actions
related to use of land and to assure an adequate factual base for such decisions and actions”
Findings
Goal 2 requires that local comprehensive plans be consistent with Statewide Planning Goals and that
implementing ordinances be consistent with acknowledged comprehensive plans. The Eugene-
Springfield Metropolitan Area General Plan (Metro Plan) is the policy document (local comprehensive
plan) that provides a basis for all decisions and actions related to land use in the Eugene-Springfield
metropolitan area, and for Springfield in particular. The Metro Plan was acknowledged by the State on
August 23, 1982 to be in compliance with Statewide Planning Goals pursuant to ORS 197.245 and
197.250. The Metro Plan underwent Periodic Review and subsequent State acknowledgement in 1986
and again in 1994-2007. In all cases, the Metro Plan is the guiding comprehensive planning and land use
policy document, and refinement plans must be consistent with the Metro Plan. The SDC also
implements the policies and direction of the Metro Plan and adopted refinement plans and specifies the
procedures and criteria that are necessary for development approval.
The Phase 1 Update required a Type II Metro Plan diagram amendment that was ultimately
acknowledged by DLCD on May 9, 2014. In the present case, only the Franklin Boulevard Project
envelope is proposed to be realigned and the accompanying text descriptions of the Project envelope
revised. These applications will not affect any acknowledged Metro Plan or Glenwood Refinement Plan
designation. Because portions of Glenwood are still outside of Springfield’s city limits, but within its
UGB, Lane County co-adopted the Phase 1 Update and must co-adopt this Glenwood Refinement Plan
Transportation Chapter amendment application.
Goal 2 also requires that land use decisions be coordinated with affected jurisdictions and that they be
supported by an adequate factual base.
ORS 197.610 requires the City to forward notice of proposed refinement plan amendments to the
Department of Land Conservation and Development (DLCD) a minimum of 35 days prior to the first
Attachment 1, Page 9 of 37
evidentiary hearing on adoption. Notice was provided to DLCD on July 30, 2014; the first evidentiary
hearing is scheduled for September 2, 2014. ODOT and LTD are considered affected agencies.
Goal 2 provides procedures for Statewide Goal exceptions. An exception is a decision to exclude certain
land from the requirements of one or more applicable Statewide Planning Goals. No Statewide Planning
Goal exceptions are proposed or are necessary for the proposed amendments to be adopted.
Conclusion
The Goal 2 coordination requirement is met when Springfield engages in an exchange, or invites such an
exchange, between the City and any affected governmental unit. To comply with the Goal 2
coordination requirement, the City engaged in inviting an exchange of information about the proposed
amendment with all of the affected governmental units. Specifically, the City provided notice of the
proposed action and opportunity to comment to DLCD, ODOT, LTD. There are no Goal 2 exceptions
required for the proposed amendments. Therefore, the proposed amendments of the Glenwood
Refinement Plan Transportation Chapter and Springfield Development Code, Appendix 3 are consistent
with Goal 2.
STATEWIDE PLANNING GOAL 3 AGRICULTURAL LAND
“To preserve and maintain agricultural lands.”
Findings
Goal 3 defines "agricultural lands" by stating, in part, that they: “…do not include land within
acknowledged urban growth boundaries….”
The Phase 1 Update and the proposed amendments apply to property located completely within
Springfield’s acknowledged Urban Growth Boundary (UGB), both in and outside of the city limits. All
land in Springfield’s UGB has City zoning. Springfield has the authority to apply City zoning between the
city limits and UGB through an Intergovernmental Agreement signed with Lane County in 1986. Land in
Glenwood is currently planned and zoned for urban use and will continue to be upon adoption of the
proposed amendments. No UGB expansion is proposed as part of the proposed amendments. The
proposed Glenwood Refinement Plan Transportation Chapter and Springfield Development Code,
Appendix 3 amendments do not affect land designated for agricultural use outside of Springfield’s UGB.
Conclusion
Goal 3 is not applicable to the proposed amendments because no agricultural plan designation or use is
affected and Goal 3 excludes lands inside an acknowledged urban growth boundary from the definition
of agricultural lands.
STATEWIDE PLANNING GOAL 4 FOREST LAND
“To conserve forest lands by maintaining the forest land base and to protect the state's forest
economy by making possible economically efficient forest practices that assure the continuous
growing and harvesting of forest tree species as the leading use on forest land consistent with sound
management of soil, air, water, and fish and wildlife resources and to provide for recreational
opportunities and agriculture.”
Findings
OAR 660-006-0020 states: “Goal 4 does not apply within urban growth boundaries and therefore, the
designation of forest lands is not required.”
Attachment 1, Page 10 of 37
The Phase 1 Update and the proposed amendments apply to property located completely within
Springfield’s acknowledged Urban Growth Boundary (UGB), both in and outside of the city limits. All
land in Springfield’s UGB has City zoning. Springfield has the authority to apply City zoning between the
city limits and UGB through an Intergovernmental Agreement signed with Lane County in 1986. Land in
Glenwood is currently planned and zoned for urban use and will continue to be upon adoption of the
proposed amendments. No UGB expansion is proposed as part of the proposed amendment. The
proposed Glenwood Refinement Plan Transportation Chapter amendment does not affect land
designated for forest use outside of Springfield’s UGB.
Conclusion
All land comprising the Phase 1 Update area is within Springfield’s UGB; therefore, as specified in OAR
660-006-20, Goal 4 does not apply.
STATEWIDE PLANNING GOAL 5 NATURAL RESOURCES, SCENIC AND HISTORIC AREAS, AND OPEN
SPACE
“To protect natural resources and conserve scenic and historic areas and open spaces.”
Findings
Goal 5 requires communities to inventory the following natural resources: Riparian corridors, including
Water and Riparian Areas and Fish Habitat; Wetlands; Wildlife Habitat; Federal Wild and Scenic Rivers;
State Scenic Waterways; Groundwater Resources; Approved Oregon Recreation Trails; Natural Areas;
Wilderness Areas; Mineral and Aggregate Resources; Energy Sources; and Cultural Areas. Goal 5
encourages communities to maintain existing inventories of the following resources: Historic
Resources; Open Space; and Scenic Views and Sites.
The Phase 1 Update was found to be consistent with Goal 5 because all applicable OARs implementing
the Goal were addressed and riparian and wetland inventories within the Phase 1 Update boundaries
were updated. The NEPA review and Categorical Exclusion discussed above and as part of Goal 12 have
determined that the proposed realignment of the Franklin Boulevard Project envelope does not have an
impact on any Goal 5 resource.
Conclusion
All applicable sections of Goal 5 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 5 resources is necessary as
part of the proposed Glenwood Refinement Plan Transportation Chapter and Springfield Development
Code, Appendix 3 amendments, the intent of which is only to realign the Franklin Boulevard Project
envelope and to revise the applicable text descriptions of the Project envelope. Therefore, compliance
with Goal 5 is maintained by these applications.
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.”
Findings
Goal 6 addresses waste and process discharges from development and is aimed at protecting air, water
and land from impacts from those discharges. All land comprising the Phase 1 Update area is located
within Springfield’s Urban Growth Boundary. Any development in Glenwood must also comply with
applicable state and federal air and water quality standards. Future development and redevelopment in
Attachment 1, Page 11 of 37
the Phase 1 Update will be reviewed under Springfield’s land use standards contained in the Springfield
Development Code to ensure that the integrity of the air, water, and land resources are preserved.
The Phase 1 Update was found to be consistent with Goal 6 because all applicable state and federal
air and water quality standards were addressed. The proposed realignment of the Franklin Boulevard
Project envelope does not have an impact on any air, water or land resources described in Goal 6.
Conclusion
All applicable sections of Goal 6 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of the resources described in Goal 6
is necessary as part of the proposed Glenwood Refinement Plan Transportation Chapter and Springfield
Development Code, Appendix 3 amendments, the intent of which is only to realign the Franklin
Boulevard Project envelope and revise the applicable text descriptions of the Project envelope.
Therefore, compliance with Goal 6 is maintained by these applications.
STATEWIDE PLANNING GOAL 7 AREAS SUBJECT TO NATURAL HAZARDS
“To protect life and property from natural disasters and hazards.”
Findings
Goal 7 requires comprehensive plans to include provisions to protect life and property based on an
inventory of known areas of natural hazards including, but not limited to, floods, landslides and
earthquakes. Goal 7 prohibits development in natural hazard areas without appropriate safeguards.
The Phase 1 Update was found to be consistent with Goal 7 because all applicable state and federal
natural hazard regulations were addressed. The proposed realignment of the Franklin Boulevard Project
envelope does not have an impact on any Goal 7 area subject to natural hazards.
Conclusion
All applicable sections of Goal 7 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 7 resources is necessary as
part of the proposed Glenwood Refinement Plan Transportation Chapter and Springfield Development
Code, Appendix 3 amendments, the intent of which is only to realign the Franklin Boulevard Project
envelope and to revise the applicable text descriptions of the Project envelope. Therefore, compliance
with Goal 7 is maintained by these applications.
STATEWIDE PLANNING GOAL 8 RECREATIONAL NEEDS
“To satisfy 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.”
Findings
Goal 8 requires local governments to plan and provide for the siting of necessary recreational facilities
to “satisfy the recreational needs of the citizens of the state and visitors.”
The Phase 1 Update was found to be consistent with Goal 8 because all applicable state and local park
regulations were addressed. The proposed realignment of the Franklin Boulevard Project envelope does
not have an impact on any Goal 8 recreational park siting regulations or future park sites shown in the
Willamalane Park and Open Space Plan, a refinement plan adopted by the City of Springfield and Lane
County.
Attachment 1, Page 12 of 37
Conclusion
All applicable sections of Goal 8 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 8 recreational needs is
necessary as part of the Glenwood Refinement Plan Transportation Chapter and Springfield
Development Code, Appendix 3 amendments, the intent of which is only to realign the Franklin
Boulevard Project envelope and to revise the applicable text descriptions of the Project envelope.
Therefore, compliance with Goal 8 is maintained by these applications.
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.”
Findings
Economic Development requires cities to maintain adequate supplies of buildable lands for projected
commercial and industrial use.
The Phase 1 Update, as amended, was found to be consistent with Goal 9 because all applicable
economic development regulations were addressed. The proposed realignment of the Franklin
Boulevard Project envelope does not have an impact on any Goal 9 economic development regulations.
Conclusion
All applicable sections of Goal 9 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 9 economic development
regulations is necessary as part of the proposed Glenwood Refinement Plan Transportation Chapter and
Springfield Development Code, Appendix 3 amendments, the intent of which is only to realign the
Franklin Boulevard Project envelope and to revise the applicable text descriptions of the Project
envelope. Therefore, compliance with Goal 9 is maintained by these applications.
STATEWIDE PLANNING GOAL 10 HOUSING
“To provide for the housing needs of citizens of the state.”
Findings
Goal 10 requires buildable lands for residential use to be inventoried and requires plans to encourage
the availability of adequate numbers of needed housing units at price ranges and rent levels
commensurate with the financial capabilities of Oregon households.
The Phase 1 Update, as amended, was found to be consistent with Goal 10 because all applicable
housing need regulations were addressed. The proposed realignment of the Franklin Boulevard Project
envelope does not have an impact on any Goal 10 housing need regulations.
Conclusion
All applicable sections of Goal 10 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 10 housing need regulations
is necessary as part of the proposed Glenwood Refinement Plan Transportation Chapter and Springfield
Development Code, Appendix 3 amendments, the intent of which is only to realign the Franklin
Boulevard Project envelope and to revise the applicable text descriptions of the Project envelope.
Therefore, compliance with Goal 10 is maintained by these applications.
Attachment 1, Page 13 of 37
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.”
Findings
Goal 11 requires local jurisdictions to adopt policy documents and regulations regarding the provision of
public facilities and services.
The Phase 1 Update was found to be consistent with Goal 11 because all applicable public facility policy
documents and regulations were addressed. The proposed realignment of the Franklin Boulevard
Project envelope does not have an impact on any Goal 11 public facility policy documents and
regulations.
Conclusion
All sections of Goal 11 applicable to Phase 1 Update were addressed in the applications comprising
Phase 1 Update that was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 11
public facility policy documents and regulations is necessary as part of the proposed Glenwood
Refinement Plan Transportation Chapter and Springfield Development Code, Appendix 3 amendments,
the intent of which is only to realign the Franklin Boulevard Project envelope and to revise the
applicable text descriptions of the Project envelope. Therefore, compliance with Goal 11 is maintained
by these applications.
STATEWIDE PLANNING GOAL 12 TRANSPORTATION
“To provide and encourage a safe, convenient and economic transportation system.”
Findings
Goal 12 requires local jurisdictions to adopt policy documents and regulations regarding the provision of
a multi-modal public transportation system. Specific Transportation Planning Rule (TPR) and Oregon
Administrative Rule (OAR) 660, Division 12 were addressed in the original Glenwood Phase I staff report.
Specific details regarding future improvements to Franklin Boulevard, including the description of a
Project envelope, were contained in the adopted Glenwood Refinement Plan Transportation Chapter.
The intent of the Franklin Boulevard Project conceptual envelope was to provide potential developers
guidance for the location of proposed buildings until the Revised Conceptual Design 2014 was approved.
The level of detail regarding the approved Phase 1 Update Franklin Boulevard Project conceptual
envelope was never explicitly addressed in the Goal 12 findings for that application, which were
primarily focused on capacity and trip generation issues because the design for Franklin Boulevard at
that time was considered conceptual (see also Staff’s response to Goal 1). In addition, the cited
transportation documents that referenced future Franklin Boulevard Projects in the Phase 1 Update
consisted of “general Project descriptions” that were cited in the original Phase 1 Update staff report.
The only specific reference to the Franklin Boulevard Project envelope is found in the Glenwood
Refinement Plan Transportation Chapter. These are the figures and text proposed to be amended as
part of these applications. See Attachment 1.
The following transportation documents with their “general” project descriptions to future Franklin
Boulevard Projects were cited in the original Phase 1 Update staff report and are cited again below:
Attachment 1, Page 14 of 37
The Statewide Transportation Improvement Program (STIP) 2010-2013
Franklin Boulevard from the I-5 Bridges to McVay Highway – NEPA Analysis – was listed under Key
17217.
The Regional Transportation Plan and TransPlan
Both documents referred to Project 839 – Upgrade Franklin Boulevard to urban facility from Jenkins
Drive to Mill Street.
Springfield Capital Improvement Program (CIP) - 2012-2016
o Franklin Boulevard Planning. Complete Project refinement, including National Environmental
Policy Act (NEPA) documentation for future improvements to Franklin Boulevard, the
Franklin/Glenwood intersection and the Franklin/McVay intersections to support Glenwood
redevelopment and regional mobility for transit, bicycles/pedestrians, and autos. Contribute to
the required local match for any federal funding received.
o Franklin Boulevard Reconstruction Project. The Franklin Boulevard Reconstruction Project will
construct modern urban standards improvements on the old Hwy 99 alignment in Glenwood
called Franklin Boulevard, between the Franklin/Glenwood intersection and the Franklin/McVay
intersection to support Glenwood redevelopment and regional safety and mobility for transit,
bicycles/pedestrians, and autos.
The Phase 1 Update was adopted by the Springfield City Council on June 18, 2012 (Ordinance No. 6279)
and by the Lane County Board of Commissioners on September 5, 2012 (Ordinance No. PA1288 and
Ordinance No. 3-12).
On September 28, 2012, Shamrock Homes, LLC filed a Notice of Intent to Appeal Ordinances 6279,
PA12888 and 3-12.
On July 12, 2013, LUBA rendered its decision (LUBA nos. 2012-077/078/079). LUBA’s decision required
Springfield to take additional action to address the following Goals: Goal 9 (Economic Development);
Goal 10 (Housing); Goal 12 (Transportation); and Goal 15 (Willamette River Greenway).
The LUBA Remand topic applicable to these applications applies to Goal 12. To comply with the
Transportation Planning Rule (TPR), staff prepared additional findings to address the LUBA Remand as
part of an amendment to the Glenwood Refinement Plan Transportation Chapter and Springfield
Development Code (SDC) Section 3.4-245 and Appendix 3 to reflect the establishment of the Multimodal
Mixed -Use Area (MMA) designation for all of the Phase 1 Update, as allowed under OAR 660-012-
0060(10). Adoption of the MMA designation eliminated any further requirement by staff to address a
finding of “no significant effect" on existing or planned transportation facilities in the Phase 1 Update.
In April 2014, the MMA designation was established by Springfield Ordinance 6316 and Lane County
Ordinance PA1308. Both Ordinances addressed all of the LUBA Remand topics, including those relating
to Goal 12. Both Ordinances were acknowledged by DLCD on May 9, 2014.
In addressing Goal 12 as part of these applications, staff is reaffirming the “general” descriptions of the
future Franklin Boulevard Projects in the transportation documents cited in the approved and
acknowledged Phase 1 Update staff report. Also, since the adoption of the Phase 1 Update LUBA
Remand Ordinances, the following transportation related documents have been updated/amended/
Attachment 1, Page 15 of 37
adopted but still do not reference a specific Franklin Boulevard envelope in any of the Project
descriptions:
The Statewide Transportation Improvement Program (STIP) 2010-2013
Franklin Boulevard from the I-5 Bridges to McVay Highway – NEPA Analysis – listed under Key
17217. This Project qualified for a Categorical Exclusion. Staff is awaiting the “official”
correspondence from FHWA.
The Springfield 2035 Transportation System Plan (TSP)
The Springfield 2035 TSP provides a 20-year blueprint for how Springfield should maintain and
improve the transportation network to meet growth demands within Springfield's Urban Growth
Boundary (UGB). The TSP was adopted in March 2014 by the Springfield City Council, Ordinance
6314 and by the Lane County Board of Commissioners, Ordinance PA1303 in a process that included
coordination with community members and affected public agencies.
Until adoption of Springfield 2035 TSP, the 2002 Metro Area TransPlan 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 Eugene and Springfield to develop separate UGBs and separate buildable
lands inventories. With separate UGBs and land inventories, the cities of Springfield and Eugene
determined that it was preferable to develop city-specific local TSPs.
The Springfield 2035 TSP now supersedes TransPlan as the City's specific refinement of the Metro
Plan insofar as it affects transportation system issues within Springfield and Springfield’s UGB. Staff
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.
The performance measures by which progress towards meeting TPR requirements over the
TransPlan planning horizon that were evaluated for the Central Lane MPO area 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 prepared findings
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. Improvements to Franklin Boulevard are
reflected in the Springfield 2035 TSP as follows:
Attachment 1, Page 16 of 37
R-13 Franklin Boulevard Multi-modal
Improvements (Construct multi-modal
improvements on Franklin Boulevard, from
I-5 to the railroad tracks south of the
Franklin Boulevard/McVay Highway
intersection, and construct a roundabout
at the Franklin Boulevard/Glenwood
Boulevard intersection)
$35,000,000
R-14 Franklin Boulevard/McVay Highway
Multi-lane Roundabout (Construct a multi-
lane roundabout)
$7,000,000
The Regional Transportation Plan (RTP) and TransPlan
Both documents still refer to Project 839 – Upgrade Franklin Boulevard to urban facility from Jenkins
Drive to Mill Street.
Springfield Capital Improvement Program (CIP) - 2014-2018
o Franklin Boulevard NEPA. No Map. Complete Project refinement, including National
Environmental Policy Act (NEPA) documentation for future improvements to Franklin Boulevard,
the Franklin/Glenwood, Franklin/Henderson, Franklin/Mississippi and Franklin/McVay
intersections to support Glenwood redevelopment and regional mobility for transit,
bicycles/pedestrians and autos.
o Franklin Boulevard Phase 1 Reconstruction. Map ID-TS 32. Due to the pending jurisdictional
transfer of Franklin Boulevard in Glenwood from ODOT to Springfield, Franklin Phase 1
construction will absorb the currently programmed ODOT intersection upgrade at
Franklin/Brooklyn in order to provide a complete and permanent intersection solution and to
insure seamless Project design and delivery for the overall corridor.
o Franklin Boulevard Reconstruction Project. Map ID-TS 33. The Franklin Boulevard
Reconstruction Project will construct modern standards and improvements on the old Hwy 99
alignment in Glenwood called Franklin Boulevard between the Franklin/Glenwood intersection
and the Franklin/McVay intersection to support Glenwood redevelopment and regional safety
and mobility for transit, bicycles/pedestrians and autos.
Still, the only specific reference to the Franklin Boulevard Project envelope is found in the Glenwood
Refinement Plan Transportation Chapter (Phase 1) and the Springfield Development Code, Appendix 3.
The Franklin Boulevard envelope figures and text proposed to be amended for the Franklin Boulevard
Project envelope are those specified in Attachments 1 and 3. No further amendment of the above cited
updated/amended/adopted documents is required in order to realign the Franklin Boulevard Project
envelope in the Glenwood Refinement Plan Transportation Chapter and the Springfield Development
Code, Appendix 3.
The Franklin Boulevard Project is listed in the recently adopted Springfield 2035 Transportation System
Plan (TSP) discussed above. The Franklin Boulevard Project is in compliance with the TSP.
Conclusion
Attachment 1, Page 17 of 37
All applicable sections of Goal 12 were addressed in the applications comprising the Phase 1 Update, as
amended that was acknowledged by DLCD on May 9, 2014. The intent of these applications is to amend
the Transportation Chapter of the Glenwood Refinement Plan and Springfield Development Code,
Appendix 3 amendments in order to realign the Franklin Boulevard Project envelope. These applications
do not necessitate additional Goal 12 findings because:
1) The LUBA Remand resulted in the establishment of an MMA for all of Phase 1 Update and the
proposed amendments do not have an impact on the MMA; and
2) There is no need to amend the transportation documents cited either in the original Phase 1 Update
staff report, or as currently updated, amended or adopted as cited in this staff report because there
never was a reference to the Franklin Boulevard Project envelope in these transportation
documents.
Therefore, compliance with Goal 12 is maintained by these applications.
STATEWIDE PLANNING GOAL 13 ENERGY CONSERVATION
“To conserve energy. 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.”
Findings
Goal 13 requires local jurisdictions to adopt policy documents and regulations regarding energy
conservation.
The Phase 1 Update was found to be consistent with Goal 13 because all applicable energy conservation
policy documents and regulations were addressed. The proposed realignment of the Franklin Boulevard
Project envelope does not have an impact on any Goal 13 Energy Conservation policy documents and
regulations.
Conclusion
All applicable sections of Goal 13 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 13 Energy Conservation
policy documents and regulations is necessary as part of the proposed Glenwood Refinement Plan
Transportation Chapter and Springfield Development Code, Appendix 3 amendments, the intent of
which is only to realign the Franklin Boulevard Project envelope and to revise the applicable text
descriptions of the Project envelope. Therefore, compliance with Goal 13 is maintained by these
applications.
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:
Goal 14 requires cities to estimate future growth and needs for land and then plan and zone enough
land to meet those needs.
The Phase 1 Update was found to be consistent with Goal 14 because all applicable urbanization policy
documents and regulations were addressed. The proposed realignment of the Franklin Boulevard
Attachment 1, Page 18 of 37
Project envelope does not have an impact on any Goal 14 Urbanization policy documents and
regulations.
Conclusion
All applicable sections of Goal 14 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 14 Urbanization policy
documents and regulations is necessary as part of the proposed Glenwood Refinement Plan
Transportation Chapter and Springfield Development Code, Appendix 3 amendments, the intent of
which is only to realign the Franklin Boulevard Project envelope and to revise the applicable text
descriptions of the Project envelope. Therefore, compliance with Goal 14 is maintained by these
applications.
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
Goal 15 requires cities to protect the various qualities of the Willamette River.
The Phase 1 Update, as amended, was found to be consistent with Goal 15 because all applicable
Willamette River protection policy documents and regulations were addressed. The proposed
realignment of the Franklin Boulevard Project envelope does not have an impact on any Goal 15
Willamette River Greenway protection policy documents and regulations.
Conclusion
All applicable sections of Goal 15 were addressed in the applications comprising the Phase 1 Update that
was acknowledged by DLCD on May 9, 2014. No further discussion of Goal 15 Willamette River
Greenway protection policy documents and regulations is necessary as part of the proposed Glenwood
Refinement Plan Transportation Chapter and Springfield Development Code, Appendix 3 amendments,
the intent of which is only to realign the Franklin Boulevard Project envelope and to revise the
applicable text descriptions of the Project envelope. Therefore, compliance with Goal 15 is maintained
by these applications.
GOAL 16: ESTUARINE RESOURCES
“To recognize and protect the unique environmental, economic, and social
values of each estuary and associated wetlands; and
To protect, maintain, where appropriate develop, and where appropriate restore the long-term
environmental, economic, and social values, diversity and benefits of Oregon's estuaries.”
GOAL 17: COASTAL SHORELANDS
“To conserve, protect, where appropriate, develop and where appropriate restore the resources
and benefits of all coastal shorelands, recognizing their value for protection and maintenance of water
quality, fish and wildlife habitat, water-dependent uses, economic resources and recreation and
aesthetics. The management of these shoreland areas shall be compatible with the characteristics of
the adjacent coastal waters; and
To reduce the hazard to human life and property, and the adverse effects upon water quality and fish
and wildlife habitat, resulting from the use and enjoyment of Oregon’s coastal shorelands.”
Attachment 1, Page 19 of 37
GOAL 18: BEACHES AND DUNES
“To conserve, protect, where appropriate develop, and where appropriate restore the resources
and benefits of coastal beach and dune areas; and
To reduce the hazard to human life and property from natural or man-induced actions associated with
these areas.”
GOAL 19: OCEAN RESOURCES
“To conserve marine resources and ecological functions for the purpose of providing long-term
ecological, economic, and social value and benefits to future generations.
Findings
Goals 16-19. These goals apply only to cities and portions of counties at the land – ocean interface; they
do not apply to any area within Springfield jurisdiction.
Conclusion
All applicable Statewide Planning Goals were addressed in the applications comprising the Phase 1
Update that was acknowledged by DLCD on May 9, 2014. Goals 1, 2 and 12 have been addressed as part
of these applications regarding the proposed Glenwood Refinement Plan Transportation Chapter and
Springfield Development Code, Appendix 3 amendments, the intent of which is only to realign the
Franklin Boulevard Project envelope and to revise the applicable text descriptions of the Project
envelope and the Springfield Development Code, Appendix 3. Criterion 5.6-115A.3. has been met.
“B. Applications specified in Section 5.6-105 may require co-adoption by the Lane County Board of
Commissioners.”
Findings
Portions of Phase 1 are both within and outside of Springfield’s city limits; amendments that apply
outside the city limits must be co-adopted by Lane County. Phase 1 was co-adopted by Lane County;
these applications also will be co-adopted by Lane County.
Conclusion
The Phase 1 Update acknowledged by DLCD on May 9, 2014, included: Springfield Ordinance 6279, co-
adopted by Lane County Ordinances PA 1288 and No. 3-12; and the response to the LUBA Remand
Springfield Ordinance 6316, co-adopted by Lane County Ordinances PA 1306 and No. 13-07. Upon
approval of the adopting Ordinance for these applications by Lane County, criterion 5.6-115B. will be
met.
STAFF REPORT CONCLUSION AND RECOMMENDATION
Based on the findings and conclusions in this staff report, the amendments of the Glenwood Refinement
Plan, Transportation Chapter and Springfield Development Code, Appendix 3 to realign the Franklin
Boulevard Project envelope and to revise the applicable text descriptions of the Project envelope are
consistent with SDC Section 5.6-100 Refinement Plans, Plan Districts and the Development Code-
Adoption or Amendment.
Staff requests the Springfield Planning Commission to: adopt the findings of fact contained in this
report; add or amend as necessary, additional findings and conclusions determined by the Commission
to support the proposed applications amending the Glenwood Refinement Plan, Transportation Chapter
and Springfield Development Code, Appendix 3 to realign the Franklin Boulevard Project envelope and
Attachment 1, Page 20 of 37
to revise the applicable text descriptions of the Project envelope; and forward this report, findings and
applications to the Springfield City Council and the Lane County Board of Commissioners with the
recommendation that the elected officials approve these applications at their public hearing scheduled
for October 27, 2014.
ATTACHMENT 1
Underline is used for proposed text. Strike out is used for deleted text.
Phase 1 Update - Glenwood Refinement Plan, Transportation Chapter
Franklin Boulevard
From 2007-2008, Springfield worked with its transportation partners, stakeholders, and consultants on
the Franklin Boulevard Study. The project team analyzed an array of possible improvements to Franklin
Boulevard to support redevelopment and new investment in the Glenwood Riverfront. In early 2008,
staff reviewed the preferred alternative -- a hybrid multi-way boulevard -- with the Springfield Economic
Development Agency, the Planning Commission, and the City Council. On March 17, 2008, the City
Council endorsed the hybrid multi-way boulevard conceptual design and directed staff to refine the
concept and integrate it into this Plan. A hybrid multi-way boulevard incorporates a blend of street
design concepts to accomplish the fundamental goal of vehicular movement and also creates a
pedestrian-friendly environment through on-street parking, slower traffic, transit opportunities, multi-
modal applications, and enabling buildings closer to or at the right-of-way line.
Since the Council’s endorsement in 2008, Springfield has sought project funding through several grants
and other local and Federal funding sources. At the time this Plan was written, Springfield had
successfully secured funding for NEPA analysis and was in the process of procuring contract services for
the NEPA process. A full NEPA documentation process and preliminary and final design are needed
before the conceptual design is further refined and construction can begin on the upgraded boulevard.
Once the NEPA documentation is complete, a phased construction schedule may be possible given the
scope, size, and potential impacts along Franklin Boulevard. Potential construction phases and access to
existing businesses may be outlined during the NEPA analysis to help mitigate potential impacts to
adjacent businesses and property owners. One example of construction phasing could include starting
reconstruction near the intersection of Franklin Boulevard and McVay Highway, and then moving west
as funding becomes available. Another example may be to first reconstruct the northern portion of
Franklin Boulevard followed by the southern portion at a later date.
At the time of development, boulevard designs must comply with Springfield’s Engineering Design
Standards and Procedures Manual (EDSPM). The Introduction to the EDSPM states that Springfield
“reserves the right to impose more restrictive or different design standards than those contained in this
manual, on a case-by-case basis, to any public works’ design…” Therefore, in the event that a
corresponding boulevard design cannot be found in this document, developers must collaborate with
Springfield so that the design of the boulevard complies with the policies and implementation strategies
in this section and the corresponding Franklin Boulevard concept, preliminary design developed through
the NEPA process, or final design by a project design and delivery team.
Attachment 1, Page 21 of 37
The conceptual plans for the hybrid Franklin Multi-Way Boulevard, as well as the configuration of streets
off Franklin Boulevard as described in the Local Street Network section below, were completed with
participation by ODOT. [At the time this Plan was written, Franklin Boulevard was a State facility, and
Springfield and ODOT were in the process of negotiating a jurisdictional transfer] In July of 2014 the City
and ODOT reached agreement on terms specifying the jurisdictional transfer of the Franklin Boulevard
facility and associated right of way from ODOT to the City. The approved Jurisdictional Transfer
Agreement is expected to be recorded with the deed records at Lane County by September 2014. Once
the transfer is recorded, Franklin Boulevard will be owned and operated by the City of Springfield,
subject to the terms of the Transfer Agreement.
Objective:
Re-design and re-construct Franklin Boulevard as a multi-modal transportation facility to support the
redevelopment of Glenwood as envisioned in the Land Use Chapter and to provide an improved arterial
connection between Springfield and Eugene.
Policies & Implementation Strategies:
Partner with ODOT, Lane Transit District (LTD), property owners, and private developers to fund,
dedicate right-of-way, design, and construct the upgraded Franklin Boulevard.
o During the land use review and approval process for properties fronting Franklin
Boulevard, establish design and [exact] right-of-way obligations, and require dedication
of right-of-way necessary to construct the hybrid multi-way boulevard.
o Use a blend of hybrid multi-way boulevard designs as [conceptually depicted] shown in
Figure[s] 1[, and 2] Conceptual Project Design, to allow for flexibility in phasing design
and construction as funding becomes available.
o Locate the right-of-way for the Franklin Boulevard improvements within the Corridor
Envelope [described below to maximize the developable area between the upgraded
facility and the Willamette River, while also working to minimize impacts on existing
buildings on the south side of the upgraded facility] shown in Figure 2. The Corridor
Envelope extends five feet to the north and five feet to the south of the Conceptual
Project Design.
o [For the purpose of determining maximum necessary width, d] Design the upgraded
Franklin Boulevard such that the maximum necessary width does not exceed: two
eastbound and two westbound through lanes; dedicated bus rapid transit facilities
between Glenwood Boulevard and McVay Highway; left turn lanes; a continuous and
safe bicycle facility along both sides of the boulevard; access lanes in specified locations
separated by a landscaped median adjacent to the through lanes; continuous, wide
setback sidewalks buffered from traffic flow; on-street parking on the north and south
access lanes; and potential alternative bicycle/pedestrian amenities or on-street
parking on both the north and south side of the arterial sections.
Establish a Corridor Envelope that extends five feet to the north and five feet to the south of the
Conceptual Project Design to provide a measure of flexibility in project delivery of the Franklin
Attachment 1, Page 22 of 37
Boulevard improvement project. [, the approximate maximum width of which is 197 feet, and
the northern boundary of which is generally 20 feet north of the northern right-of-way of
Franklin Boulevard (McKenzie Highway) as documented by ODOT right-of-way files as of October
18, 2011.] Within this Corridor Envelope, the maximum width of the hybrid multi-way boulevard
is approximately [172] 175 feet, except where bump-outs may be required for transit stations or
intersections. [The corridor design envelope for the hybrid multi-way boulevard provides for
alignment flexibility during final design to address any geometric roadway design issues, and
also to provide design flexibility to minimize right-of-way impacts. The corridor design envelope
and planned upgraded Franklin Boulevard are described in more detail below and are
graphically approximated in Figure 3.
o Franklin Boulevard/Glenwood Boulevard Intersection and Franklin Boulevard/McVay
Highway Intersection: Preserve the area shown on Figure 3 for future intersection
improvements to provide corridor mobility and roadway access to the Glenwood
Riverfront at both intersection locations.
o Jenkins Drive to Glenwood Boulevard: The Corridor Envelope will narrow to
approximately 110 feet west of the Glenwood Boulevard intersection, tapering to meet
the facility cross-section within the I-5 right-of-way. This section of the facility is
planned as a modern urban arterial.
o Glenwood Boulevard to Henderson Avenue: The Corridor Envelope will narrow to
approximately 151 feet between the intersections, flaring to accommodate the
intersection geometry at Glenwood Boulevard and matching the width of the facility at
the Henderson Avenue intersection. This section of the facility is planned as a modern
urban arterial.
o Henderson Avenue to Mississippi Avenue: The Corridor Envelope is 197 feet wide. This
section of the facility is expected to include multi-way boulevard treatments on both the
north and south sides.
o Mississippi Avenue to McVay Highway: The Corridor Envelope flares to match the
facility at Henderson and intersection geometry at McVay Highway. Between these two
match lines the Corridor Envelope is approximately 184 feet wide. This section of the
facility is expected to include multi-way treatments on the north side and modern urban
arterial design on the south side.]
Enhance the safety, comfort, and convenience of pedestrians and bicyclists along and across the
boulevard, as conceptually depicted in Figure 3.
o Establish continuous, wide setback sidewalks on both sides of the boulevard that are
buffered from traffic flow and that consider the adjacent land use context pertinent to
development.
Attachment 1, Page 23 of 37
o Reduce crossing distances and provide pedestrian refuges by utilizing two-stage
crossings, curb extensions, stop controls, or other appropriate traffic control devices at
intersections.
o Provide enhanced pedestrian crossings to transit stations in the vicinity of intersections.
o Enhance the urban design of the area and differentiate the building/frontage zone, the
travel/throughway zone, the furnishing zone, and the curb/edge zone of the sidewalks
by incorporating distinct elements, patterns, and/or materials such as pavement
treatments, street trees, landscaping, water quality facilities, street furniture, bicycle
parking, street lights, and pedestrian scale lighting.
o Provide a continuous and safe bicycle facility along both sides of the boulevard from the
Springfield Bridges to [I-5] the eastern edge of the south bank bicycle and pedestrian
viaduct.
Increase the safety, mobility, and efficiency of bus rapid transit service, automobiles, and trucks.
o Separate through traffic from local traffic by using a combination of direct through lanes
and low-speed access lanes with on-street parking.
o [Establish dedicated bi-directional] Preserve capacity that may be used for dedicated
bus rapid transit facilities.
o Construct multi-lane roundabouts at the Franklin Boulevard/McVay Highway
intersection, Franklin Boulevard/Mississippi Avenue intersection, Franklin
Boulevard/Henderson Avenue intersection, and the Franklin Boulevard/Glenwood
Boulevard intersection that incorporate bicycle and pedestrian treatments that calm
traffic and support pedestrian and bicycle mobility and safety.
o Coordinate with appropriate State and local agencies (depending on the jurisdictional
responsibilities in effect) to close, consolidate, realign, and relocate street intersections
and curb cuts along the length of Franklin Boulevard to improve facility operations and
reduce safety conflicts.
Locate transit stations to provide optimal, safe pedestrian access between stations and adjacent
areas planned for mixed-use development.
o Construct [two median transit stations between the Franklin Boulevard/Glenwood
Boulevard intersection and the Franklin Boulevard/McVay Highway intersection.
Consider two additional]three curbside stations [at]along [the] Franklin Boulevard,
preferably at the Franklin Boulevard/Glenwood Boulevard intersection, Franklin
Boulevard/Mississippi Avenue intersection, and the Franklin Boulevard/McVay Highway
intersection.
Seek opportunities, partnerships, and funding to incorporate public art features into the design
and construction of street improvements and to establish distinctive, iconic gateway features
that help create a sense of place and orient travelers along the corridor.
Attachment 1, Page 24 of 37
…
Riverfront Multi-Use Path
…A conceptual multi-use path alignment is identified in the 2002 TransPlan, the 2004 Willamalane Park
and Recreation Comprehensive Plan, [and] the 2007 Regional Transportation Plan, and the 2014
Springfield Transportation System Plan…
ATTACHMENT 1 CON’T
Figure 1
Figure 2
Attachment 1, Page 25 of 37
ATTACHMENT 2
Public Outreach & Communication Plan
INTRODUCTION
In Glenwood, Franklin Boulevard is an aging highway with very little to no provision for safe biking or
walking. The roadway is a gateway to both Springfield and Eugene, serves as a central link between the
two downtowns, and provides the main access to the Glenwood Riverfront District.
The purpose of the Project is to change Franklin Boulevard between I-5 and McVay Highway into a
modern, urban, multi-way boulevard that safely meets the needs of pedestrians, bikes, buses, and
motor vehicles, and helps the Glenwood Riverfront District redevelop.
Glenwood’s residents, businesses and surrounding communities have been thinking and talking for more
than a decade about improving Franklin Blvd. Thoughtful and outreaching conversations, research,
committees, and public meetings bring us to today, where Springfield is guiding a revised Franklin Blvd
“footprint” through approvals required for accountability and funding.
Community members donated many hours of time over the years serving on the Glenwood Citizen
Advisory Committee, the Glenwood Redevelopment Advisory Committee, and LTD’s Glenwood Advisory
Group. Others offered testimony at council decision points.
The objective of this public outreach process is to keep the people informed as the project moves
forward, particularly those directly affected. The following values will guide the public involvement:
Meaningful: information must be accurate, timely and easily accessible
Inclusive: it is incumbent on the project to reach out to everyone, including those who don’t use
computers or have barriers to meeting attendance
Transparent: decisions are public and materials are available on the website
Realistic: clear about the project constraints, objectives, and parameters
Decisions and Roles
The project design will move through the National Environmental Policy Act (NEPA) approval process on
its path to receiving funding. As part of the process, the Oregon Department of Transportation (ODOT)
Attachment 1, Page 26 of 37
and the Federal Highway Administration (FHWA) will review, as will the Lane Transit District (LTD) and
the Federal Transit Administration (FTA). The project will be monitored and approved by the Springfield
City Council.
Project Timeline and Map
Attachment 1, Page 27 of 37
KEY S OF PUBLIC OUTREACH PLAN
Consistent reliable information and city contact person
Mailings, e-mailings, phone calls to property/business owners
Comprehensive support services for 19 businesses to be displaced
Multiple in-person meetings with each and all corridor property/business owners
In-person meetings with residents of 12 dwelling units adjacent to Franklin Blvd
Small issue-focused meetings, such as bicycle/pedestrian concerns
Up to two Open Houses held on corridor to share design
Non-traditional outreach targeted to low-income, disabled and elderly people
E-Updates to Interested Parties List
Timely response to all submitted comments & questions
Project information posters at high visibility locations
Select speaking engagements at civic organizations
Updates to Glenwood Redevelopment Advisory Committee & Glenwood Water District’s elected
Board of Directors
New Franklin Boulevard website with comment function
Media (print, radio, TV)
TARGETED COMMUNICATIONS STRATEGIES
Displaced Businesses and Property Owners
The project seeks to communicate directly and regularly with all affected business and property owners
about the Franklin Boulevard design and impacts. City staff will continue to work one-to-one with the 19
businesses and property owners that will be displaced or relocated. These owners have been notified in-
person; a direct city contact assigned to them for any questions or concerns, and received an
explanation of the upcoming process to support them through displacement or relocation. Ongoing,
Springfield Economic Development Agency (SEDA) staff from the City Manager’s Office (CMO) will work
with these business and property owners in an effort to find win-win solutions for the project and the
enterprise, including potential financial compensation, relocation assistance, assistance in evaluating
prospective relocation sites, help navigating the development process and more. Level of relocation
assistance will occur based on the particulars of each relocation case.
Actions:
SEDA staff from CMO will be assigned as the direct personal contact for businesses and property owners
that will be relocated or displaced.
SEDA staff from CMO will develop materials that outline process, options, resources and support
services available to displaced business and property owners.
SEDA staff from CMO will meet individually with any businesses and property owners that will be
displaced or relocated to discuss their options, clearly outline the process for settlement and assist in
navigation, leave descriptive materials for consideration, and give contact information for ongoing
Attachment 1, Page 28 of 37
conversation. Project staff will discuss potential financial assistance, including grant and loan programs,
relocation site’s initial environmental studies, and help to find a suitable site for relocation, if desired.
Staff will be available to assist businesses to understand and navigate the process in an effort to achieve
win-win solutions for the business and the project.
Non-Displaced Businesses and Property Owners
Business and property owners that will not be displaced by the project will potentially be affected by
changes in access, road configuration and during construction. These business and property owners will
continue to receive accurate information in a timely way provided by mail, email, phone, and multiple
in-person visits. City of Springfield Development and Public Works (DPW) staff has also been assigned as
a direct personal contact for these businesses. The City seeks to limit anxiety and business impacts by
getting information regarding project status, timing, and construction information to these business and
property owners as soon as feasible.
Business and property owners will be included in discussions and small focus groups during future
design, especially regarding roundabouts and business access.
Through interviews, the project will develop an understanding of the best ways to communicate with
businesses during construction to lessen any disruption, such as blocked accesses and prevent
unnecessary hardships. These direct efforts build on the relationships and knowledge gained from
conducting the door-door Employer Questionnaire in October 2013 and the Revised Concept Design
Outreach of March 2014 to business and property owners.
Actions:
DPW staff will be assigned as direct personal contact for non-displaced businesses and property owners
on the corridor to ensure access to consistent information, inclusion in relevant design issues, and to
convey information regarding construction work.
Deliver project information to Franklin Boulevard businesses that will not be displaced by mail, email,
phone calls and multiple in-person visits at major milestones.
Connect all businesses with ongoing information sources, such as the project’s Interest Parties List, the
website URL, and relevant media outlets.
Make phone or in-person calls to businesses that do not use computers to ensure they have updated
information.
Incorporate local business perspective on future design through one-one meeting and small focus
groups.
Interview corridor businesses regarding construction-related concerns, such as accesses, and maintain a
record of these issues for use during construction.
Attachment 1, Page 29 of 37
Glenwood Residents
Though no residents will be displaced by the road project, neighbors will be informed and aware of the
project’s progress. It will be particularly important to communicate with disabled and senior Glenwood
residents about any construction-related disruption to ensure meals and medicine needs are met.
The project will reach out to formal and informal network leaders who will help to connect the project
and the neighborhood by co-hosting informal gatherings. In addition, Project staff will share information
with Glenwood community leaders via updates to the Glenwood Water District Board, Glenwood
Redevelopment Advisory Committee, and Glenwood Community Church. Information posters about the
project will be placed in higher volume community locations, such as Dari Mart and Roaring Rapids
Pizza, to reach area residents. Open Houses will be held within walking distance. In addition to
specialized outreach outlined above, these invested community members will also receive information
via an e-update, phone calls, the project website, and the local media.
During future design residents will be included in small focus groups to understand their needs,
particularly as area pedestrians.
Actions:
Hold up to two Open Houses on corridor to share design.
Co-host small social events with residents targeted to low-income, disabled and elderly people.
Place project information posters at high visibility locations.
Communicate with residents via email, phone, website and media.
Provide Updates to Glenwood Redevelopment Advisory Committee, Glenwood Water District’s elected
Board of Directors, and Glenwood Community Church.
Include Glenwood residents in focus group pertaining to pedestrian and transit issues.
Environmental Justice Populations
The Glenwood area is home to a significant percent of low-income, disabled and elderly residents who
require low-technology based communication, such as phone calls, home visits, and door-door leaflets.
Project staff will reach out through non-conventional methods, including networking with agencies that
provide services to these populations and arranging informal community social functions with food and
entertainment as a way to connect with these residents. Project staff will also make direct personal
contact with occupants of 12 identified dwelling units directly adjacent to Franklin Boulevard. Project
staff will be persistent in efforts to ensure that these people are informed and involved as the project
progresses.
Attachment 1, Page 30 of 37
Actions:
Meet in-person with occupants of 12 identified dwelling units immediately adjacent to Franklin
Boulevard to provide information on the project, seek concerns regarding it, and gather input on its
design.
Co-host up to 4 “Coffee & Conversation” gatherings at Glenwood neighborhood homes, mobile home
parks, and the Glenwood Community Church with food and entertainment to provide a socially inviting
forum to share project information. Recruit to these informal social gatherings through leaflets
delivered door-door and phone calls to ensure reaching these constituents.
Up to 40 in person site-visits to residents, including identifying informal leaders and potential co-hosts of
Coffee & Conversations.
Provide information at informal community functions, such as an annual Halloween party and Winter
Solstice gathering hosted by residents.
In addition to mailings, use door-door leaflets for critical information at major milestones.
Phone calls as needed to reach residents.
Information placed in Glenwood Gazette at major milestones.
Investigate sharing information through Ride Source, LCOG’s Senior & Disabled Services, Meals on
Wheels, and home health care providers.
Create a dedicated phone line with recorded information message.
Franklin Boulevard Users
Franklin Boulevard is an important highway with average daily traffic (ADT) of 15,000, including freight
haulers. The EmX system serves this stretch of road, and thousands use this major inter-city arterial to
connect locally and regionally. The project must widely share design and timeline information to keep
Springfield and Eugene area residents, commuters and freight haulers well informed.
After the project moves through approvals and a detailed design nears construction, Springfield will
partner with local organizations that specialize in construction and congestion mitigation, such as
LCOG’s KeepUsMoving.Info, to develop an effective plan that keeps the public informed and disruption
to a minimum.
The design concept proposes four new roundabouts in this corridor, an intersection treatment with
which the community has limited familiarity. At the recommendation of local residents, the project will
share information about the benefits of roundabouts and how to navigate them to begin the acclimation
process early.
Attachment 1, Page 31 of 37
Actions:
Host up to two widely publicized Open Houses located on the corridor for any interested party to see
the proposed design and discuss with staff.
Use media news releases to major and local media at major milestones, including Springfield Times and
Glenwood Gazette.
Place informative posters at high-volume venues, such as City Hall, Springfield Library, Planned
Parenthood, Bring Recycling, and Lane County Refuse Center. Include contact information and how to
sign up for project information.
Continually develop Interested Parties List. Send e-updates at Project Milestones including appropriate
contacts in area agencies.
Update Project Website.
Springfield Civic Leaders
Every community has leaders who connect with a variety of constituencies. Regularly updating those
who serve on relevant Springfield committees, local service organizations and community non-profits is
a good way to use social networks as conduits for accurate information.
Actions:
Network with organizations to place information in their newsletters and links to project website at
major milestones.
Update citizen committees through email and provide information to appropriate Springfield staff to
share at committee meetings.
Arrange speaking engagements at civic committee and club meetings with the dual goal of sharing
information and signing people up to receive future updates. (Up to 8 venues)
Update Project Website.
Issue Focused Groups
Franklin Boulevard will continue to serve multiple transportation needs. The project will organize
discussions with specific types of users about the aspects of design most relevant to them to help
achieve the most functional outcome.
Attachment 1, Page 32 of 37
Actions:
Organize, recruit, and facilitate small meetings for freight haulers, bicycle and pedestrian users, and
transit riders, including low-income, elderly and disabled people.
COMMUNICATIONS MATERIALS
Project description
Project orientation map (shows corridor in bigger picture)
Franklin Blvd design
Project estimated timeline through construction
City of Springfield contact name and number
Poster in multiple sizes for different uses
Leaflets for door-door outreach for neighborhood social and information events
Frequently Asked Questions (updated as needed)
Mailing to Property Owners with design, and directions for how to respond, if desired.
Mailing to Business Owners with design, and directions for how to respond, if desired.
Website
Business Assistance Package of materials for displaced businesses
Construction concerns questionnaire for corridor businesses
Roundabout education: General facts about benefits, and how to navigate brochure
Dedicated phone line with recorded message
Attachment 1, Page 33 of 37
ATTACHMENT 3
Underline is used for proposed text. Strike out is used for deleted text.
B. Transportation Chapter.
B.1. Franklin Boulevard.
B.1.a. Partner with ODOT, Lane Transit District (LTD), property owners, and private
developers to fund, dedicate right-of-way, design, and construct the upgraded
Franklin Boulevard.
B.1.a.1. During the land use review and approval process for properties
fronting Franklin Boulevard, establish design and [exact] right-of-way
obligations, and require dedication of right-of-way necessary to
construct the hybrid multi-way boulevard.
B.1.b. Use a blend of hybrid multi-way boulevard designs as [conceptually
depicted] shown in Figure[s] 1[, and 2] Conceptual Project Design to allow for
flexibility in phasing design and construction as funding becomes available.
B.1.b.1. Locate the right-of-way for the Franklin Boulevard improvements
within the Corridor Envelope [described below to maximize the
developable area between the upgraded facility and the Willamette
River, while also working to minimize impacts on existing buildings on
the south side of the upgraded facility] shown in Figure 2. The
Corridor Envelope extends five feet to the north and five feet to the
south of the Conceptual Project Design.
B.1.b.2. [For the purpose of determining maximum necessary width, d] Design
the upgraded Franklin Boulevard such that the maximum necessary
width does not exceed: two eastbound and two westbound through
lanes; dedicated bus rapid transit facilities between Glenwood
Boulevard and McVay Highway; left turn lanes; a continuous and safe
bicycle facility along both sides of the boulevard; access lanes in
specified locations separated by a landscaped median adjacent to the
through lanes; continuous, wide setback sidewalks buffered from
traffic flow; on-street parking on the north and south access lanes;
and potential alternative bicycle/pedestrian amenities or on-street
parking on both the north and south side of the arterial sections.
B.1.c. Establish a Corridor Envelope that extends five feet to the north and five feet to
the south of the Conceptual Project Design to provide a measure of flexibility in
project delivery of the Franklin Boulevard improvement project. [, the
approximate maximum width of which is 197 feet, and the northern boundary
of which is generally 20 feet north of the northern right-of-way of Franklin
Boulevard (McKenzie Highway) as documented by ODOT right-of-way files as of
Appendix 3 – Glenwood Refinement Plan Policies and Implementation Strategies – Phase I
Attachment 1, Page 34 of 37
October 18, 2011.] Within this Corridor Envelope, the maximum width of the
hybrid multi-way boulevard is approximately [172] 175 feet, except where
bump-outs may be required for transit stations or intersections. [The corridor
design envelope for the hybrid multi-way boulevard provides for alignment
flexibility during final design to address any geometric roadway design issues,
and also to provide design flexibility to minimize right-of-way impacts. The
corridor design envelope and planned upgraded Franklin Boulevard are
described in more detail below and are graphically approximated in Figure 3.
B.1.c.1. Franklin Boulevard/Glenwood Boulevard Intersection and Franklin
Boulevard/McVay Highway Intersection: Preserve the area shown on
Figure 3 for future intersection improvements to provide corridor
mobility and roadway access to the Glenwood Riverfront at both
intersection locations.
B.1.c.2. Jenkins Drive to Glenwood Boulevard: The Corridor Envelope will
narrow to approximately 110 feet west of the Glenwood Boulevard
intersection, tapering to meet the facility cross-section within the I-5
right-of-way. This section of the facility is planned as a modern urban
arterial.
B.1.c.3. Glenwood Boulevard to Henderson Avenue: The Corridor Envelope
will narrow to approximately 151 feet between the intersections,
flaring to accommodate the intersection geometry at Glenwood
Boulevard and matching the width of the facility at the Henderson
Avenue intersection. This section of the facility is planned as a
modern urban arterial.
B.1.c.4. Henderson Avenue to Mississippi Avenue: The Corridor Envelope is
197 feet wide. This section of the facility is expected to include multi-
way boulevard treatments on both the north and south sides.
B.1.c.5. Mississippi Avenue to McVay Highway: The Corridor Envelope flares
to match the facility at Henderson and intersection geometry at
McVay Highway. Between these two match lines the Corridor
Envelope is approximately 184 feet wide. This section of the facility is
expected to include multi-way treatments on the north side and
modern urban arterial design on the south side.
B.1.d. Enhance the safety, comfort, and convenience of pedestrians and bicyclists
along and across the boulevard, as conceptually depicted in Figure 3.
B.1.d.1. Establish continuous, wide setback sidewalks on both sides of the
boulevard that are buffered from traffic flow and that consider the
adjacent land use context pertinent to development.
B.1.d.2. Reduce crossing distances and provide pedestrian refuges by
utilizing two-stage crossings, curb extensions, stop controls, or other
appropriate traffic control devices at intersections.
Attachment 1, Page 35 of 37
B.1.d.3. Provide enhanced pedestrian crossings to transit stations in the
vicinity of intersections.
B.1.d.4. Enhance the urban design of the area and differentiate the
building/frontage zone, the travel/throughway zone, the furnishing
zone, and the curb/edge zone of the sidewalks by incorporating
distinct elements, patterns, and/or materials such as pavement
treatments, street trees, landscaping, water quality facilities, street
furniture, bicycle parking, street lights, and pedestrian scale lighting.
B.1.d.5. Provide a continuous and safe bicycle facility along both sides of the
boulevard from the Springfield Bridges to [I-5] the eastern edge of the
south bank bicycle and pedestrian viaduct.
B.1.e. Increase the safety, mobility, and efficiency of bus rapid transit service,
automobiles, and trucks.
B.1.e.1. Separate through traffic from local traffic by using a combination of
direct through lanes and low-speed access lanes with on-street
parking.
B.1.e.2. [Establish dedicated bi-directional] Preserve capacity that may be
used for dedicated bus rapid transit facilities.
B.1.e.3. Construct multi-lane roundabouts at the Franklin Boulevard/McVay
Highway intersection, Franklin Boulevard/Mississippi Avenue
intersection, Franklin Boulevard/Henderson Avenue intersection, and
the Franklin Boulevard/Glenwood Boulevard intersection that
incorporate bicycle and pedestrian treatments that calm traffic and
support pedestrian and bicycle mobility and safety.
B.1.e.4. Coordinate with appropriate State and local agencies (depending on
the jurisdictional responsibilities in effect) to close, consolidate,
realign, and relocate street intersections and curb cuts along the
length of Franklin Boulevard to improve facility operations and reduce
safety conflicts.
B.1.f. Locate transit stations to provide optimal, safe pedestrian access between
stations and adjacent areas planned for mixed-use development.
B.1.f.1. Construct [two median transit stations between the Franklin
Boulevard/Glenwood Boulevard intersection and the Franklin
Boulevard/McVay Highway intersection. Consider two
additional]three curbside stations [at]along [the] Franklin Boulevard,
preferably at the Franklin Boulevard/Glenwood
Boulevard intersection, Franklin Boulevard/Mississippi Avenue
intersection and the Franklin Boulevard/McVay Highway intersection.
Attachment 1, Page 36 of 37
B.1.g. Seek opportunities, partnerships, and funding to incorporate public art features
into the design and construction of street improvements and to establish
distinctive, iconic gateway features that help create a sense of place and orient
travelers along the corridor.
Attachment 1, Page 37 of 37
Page 1 of 2
BEFORE THE PLANNING COMMISSION
OF THE CITY OF SPRINGFIELD, OREGON
ORDER AND RECOMMENDATION FOR THE AMENDMENTS TO THE GLENWOOD REFINEMENT ] TYP414-00002
PLAN TEXT AND THE SPRINGFIELD DEVELOPMENT CODE, COLLECTIVELY CALLED ] TYP414-00004
“GLENWOOD PHASE 1” ] 509-PA14-054711
RECOMMENDATION TO THE SPRINGFIELD CITY COUNCIL AND THE LANE COUNTY BOARD OF COMMISSIONERS
NATURE OF THE APPLICATIONS
A. Amend the figures and text of the Transportation Chapter of the Glenwood Refinement Plan, Phase 1
Update to: adjust the Franklin Boulevard Project concept currently in the Plan to match the proposed
Project draft design; align the proposed Project draft design so that its generally centered along the
existing Franklin Boulevard centerline; and amend the Project envelope to extend five feet to the north
and five feet to the south of the proposed draft design (TYP414-00002); and
B. Amend Springfield Development Code, Appendix 3, Glenwood Refinement Plan Policies and
Implementation Strategies – Phase 1 (TYP414-00004).
1. On June 16, 2014, the Springfield City Council initiated applications A and B.
2. The applications were submitted in accordance with Springfield Development Code Section 5.4-105. Timely
and sufficient notice of the public hearing, pursuant to Springfield Development Code Section 5.2-115, has
been provided.
3. On September 2, 2014, the Springfield Planning Commission held a public hearing to receive testimony on the
proposed amendments to the Glenwood Refinement Plan and Springfield Development Code.
4. The Development and Public Works Department staff report, the oral testimony, letters and emails received,
written submittals of the persons testifying at the hearing, and the public records for file #TYP414-00002 and
TYP414-00004 have been considered and hereby are incorporated into the record for this proceeding.
CONCLUSION
On the basis of this record, the proposed Glenwood Phase 1 amendments are consistent with the criteria of
Springfield Development Code Sections 5.6-115 A.-C. (Refinement Plan, Plan District and Springfield
Development Code amendment). This general finding is supported by the specific findings of fact and
conclusions in Attachment 1, Staff Report and Findings (September 2nd packet).
1 PA 509-PA14-05471 is a Lane County Case Number. Please note that while the Lane County Planning Commission was
present for the work session and public hearings associated with the initial adoption of Glenwood Phase I in 2011, pursuant
to the 1986 IGA (190 agreement) between Lane County and Springfield, Lane County delegated its Planning Commission
authority to the Springfield Planning Commission for land use matters within the Springfield UGB. Specifically, Article IV
Section A(3) of the IGA states: “The County shall, as of January 1, 1987: Transfer to the Springfield Planning Commission the
legislative land use authority for the urbanizable portion of the Springfield Urban Growth Boundary currently exercised by the
Lane County Planning Commission.” Given this authority and due to the County’s limited resources, the Springfield Planning
Commission will act on behalf of Springfield and Lane County for matters associated with the Glenwood Refinement Plan.
Attachment 2, Page 1 of 2
Page 2 of 2
ORDER/RECOMMENDATION
It is ORDERED by the Springfield Planning Commission that approval of TYP414-00002, TYP414-00004, and 509-
PA14-05471 be GRANTED and a RECOMMENDATION for approval forwarded to the Springfield City Council and
Lane County Board of Commissioners.
__________________________________
Planning Commission Chairperson
ATTEST
AYES:
NOES:
ABSENT:
ABSTAIN:
Attachment 2, Page 2 of 2