HomeMy WebLinkAbout2011 07 06 Glenwood Refinement Plan Phase IMEMORANDUM CITY OF SPRINGFIELD
DATE OF WORK SESSION: July 6, 2011
TO: Springfield Planning Commission PLANNING COMMISSION
TRANSMITTAL
FROM: Molly Markarian MEMORANDUM
SUBJECT: Glenwood Refinement Plan Phase I
Metro Plan/Refinement Plan Amendment LRP2008-00017
ISSUE
BRIEFING AND DISCUSSION ABOUT THE DRAFT HISTORIC & CULTURAL RESOURCES
CHAPTER FOR THE PHASE I UPDATE OF THE GLENWOOD REFINEMENT PLAN.
DISCUSSION
At the May 17, June 7, and June 21, 2011 Work Sessions, staff briefed the Planning
Commission on the status of the Glenwood Refinement Plan Update Project and presented
information on the Draft Land Use, Transportation, Open Space, Housing & Economic
Development, Public Facilities & Services, Financing Public Infrastructure, and Urban Transition
& Annexation Chapters. At this Work Session, staff will continue the Glenwood Refinement
Plan review process by presenting information and answering questions regarding the Draft
Historic & Cultural Resources Chapter.
Staff prepared this draft chapter in coordination with the Springfield Historic Commission starting
in April 2011. In June 2011, the Citizen Advisory Committee (CAC) recommended forwarding
the policies and implementation strategies in this chapter to the Planning Commission for its
consideration.
A majority of CAC members supported the recommendations in this Chapter, and the reasons
for lack of support were noted. Staff has revised the Draft Historic & Cultural Resources
Chapter based on feedback from the CAC and the City Attorney’s Office (Attachment 1).
ACTION REQUESTED
None – for information only.
ATTACHMENTS
Attachment 1: Historic & Cultural Resources Chapter
Historic & Cultural Resources Chapter Draft 1 June 15, 2011
Page 1 of 4
Historic & Cultural Resources
Introduction
It is true that at first glance, it may not appear that there is much remaining of historic Glenwood.
However, it is only through an understanding of Glenwood’s history that significant details will begin to
reveal themselves. In Glenwood, these details will not be observed in the more popular image of high‐
style Victorian architecture. The types of historic images that Glenwood has to offer lay more in its rural
vernacular architecture1 with an emphasis on general development patterns, landscape features, and
possible archeological sites. Historic preservation policies and programs can be a challenging
undertaking when such efforts are measured against the more tangible and immediate results of new
construction and redevelopment. The policy direction contained in this Chapter is thus intended to
encourage Springfield, its Historic Commission, and the community at large to document Glenwood’s
history and protect resources that are identified as meriting preservation.
Statewide Planning Goal 5 – Natural Resources, Scenic and Historic Areas, and Open Spaces – provides
policy direction regarding historic resources in Oregon. Specifically, Oregon Administrative Rules state
that local comprehensive plans should foster and encourage the preservation, management, and
enhancement of structures, resources, and objects of historic significance within the jurisdiction. In
conformance with Goal 5, the Eugene‐Springfield Metropolitan Area General Plan’s (Metro Plan) Historic
Preservation Element outlines the goals, objectives, and policies for historic preservation in the
metropolitan area. In accordance with one of the goals of this Phase I Glenwood Refinement Plan
update, ‘celebrate Glenwood’s contributions to the region’s historic development,’ this Chapter refines
the Metro Plan’s historic preservation policies specifically for Glenwood, and, in particular, for the
Glenwood Riverfront.
A growing body of knowledge exists regarding Glenwood’s historic development pattern. The 1989
Oregon Agricultural Development Context Statement, 1996 Eugene Area Historic Context Statement,
and 1999 Springfield Historic Context Statement contain information about Glenwood’s early history.
The Historic Qualities section of the Environmental Design Element in the 1989 Glenwood Refinement
Plan also provides a brief historical sketch of Glenwood’s development from the 1850s to the 1980s.
Additional historic information is included in the final report of a 2001 windshield survey of Glenwood’s
historic resources. Nevertheless, while these documents contribute to Springfield’s knowledge of
Glenwood’s history, the history of Glenwood has never been thoroughly documented in a Glenwood‐
specific context statement.
In 2010, the Springfield Historic Commission contracted with Historic Preservation Northwest to conduct
a Reconnaissance Level Survey2 (RLS) to further investigate properties identified as having potential
1 Vernacular architecture refers to the design of structures constructed by builders without the intervention of
professional architects.
2 Surveys of historic and archaeological resources are mandated by the National Historic Preservation Act of 1966, and
Amendments, and are carried out and supported by the State Historic Preservation Office, as well as by historic preservation
Attachment 1-1
Historic & Cultural Resources Chapter Draft 1 June 15, 2011
Page 2 of 4
historic resources in the 2001 windshield survey (Figure 1). The purpose of the survey was to: provide
the residents of Springfield with an assessment of the historic resources in Glenwood; provide
Springfield with an informational basis for policy and planning decisions regarding the management and
protection of historic resources located within Glenwood; and add to the body of knowledge maintained
by the Oregon State Historic Preservation Office with regards to historic resources within Springfield,
Lane County, and the State of Oregon. The information gleaned from the survey within the Glenwood
Phase I boundary provided a basis for this Chapter. The survey information outside of the Phase I
boundary will provide the basis for the Glenwood Phase II Historic & Cultural Resources Chapter.
Historic & Cultural Resources
Historic Resources
The 2010 RLS identified eight structures within the Glenwood Riverfront that have resources of local
and/or national significance and warrant further examination as they have the potential for individual
listing, as depicted in Figure 23. Of those, the consultants4 who conducted the RLS named the Myrmo &
Sons, Blue Cross Animal Hospital, and Intercity Engineering structures as being the ‘most interesting’
should Springfield pursue further research for any of these potentially eligible structures. An Intensive
Level Survey was conducted for the Blue Cross Animal Hospital as part of the bus rapid transit station
development along Franklin Boulevard in 2000. In reviewing the results of the RLS, the Springfield
Historic Commission requested that staff seek opportunities to document the other eight potentially
eligible properties within the Glenwood Riverfront.
Cultural Resources
In March 2009, the State Archaeologist responded to the City’s request for information regarding
potential archeological resources in Glenwood. The State Archaeologist noted that in reviewing the
statewide cultural resources database, he determined that no previous cultural resource surveys have
professionals on contract. The Oregon historic resource survey program is designed as a three‐part linear process beginning
with identifying potential historic resources and culminating in the nomination of individual properties and historic districts to
the National Register of Historic Places. The three components of the survey process are: 1) the Reconnaissance Level Survey
(RLS); 2) the Intensive Level Survey (ILS); and 3) nomination to the National Register. The RLS is designed as an identification
and evaluation tool to provide general information about resources within a designated survey area. The primary purpose is to
provide a “first cut” of buildings in a given area that appear to be eligible for listing in the National Register of Historic Places.
An RLS involves only a visual evaluation of properties, not an assessment of associated historical events or individuals. Specific
information on residents and the history of a particular resource can only be obtained through historical research conducted as
part of an Intensive Level Survey (ILS), the next level of survey.
3 Surveys require specific methods of documentation and reporting in order to maximize their accuracy and their usefulness in
later stages of the survey process. The Guidelines for Conducting Historic Resource Surveys in Oregon details the types of
surveys conducted in Oregon and how to complete them. Properties identified as “eligible” in a RLS need to meet National
Register age and integrity requirements (outlined in federal regulations 36 CFR 60 and National Register Bulletin 15). This
means that they should retain most of their original appearance and be at least 50 years old. In order to extend the “life” of the
survey, however, it is advisable to include buildings that will turn fifty in the next several years as eligible properties.
4 Oregon requires preservation professionals to direct all aspects of the survey work as the Lead Surveyor. “Professionals”
should meet the architectural historian qualifications outlined by the federal government in 36 CFR 61, Appendix A. These
qualifications, in general, are a graduate degree in architectural history or a closely related field, or a bachelor’s degree in the
same fields, plus at least two years of full‐time experience in architectural history related work.
Attachment 1-2
Historic & Cultural Resources Chapter Draft 1 June 15, 2011
Page 3 of 4
been completed within the Glenwood Refinement Plan boundary5. Further, there are no known
prehistoric archaeological resources in Glenwood, and the only historic archaeological site in the State’s
records is the railroad junction trestle built around 1926 near East 19th Avenue (Glenwood Phase II). The
State Archaeologist added, however, that Glenwood lies within an area generally perceived to have a
high probability for possessing archaeological sites and/or buried human remains regardless of the
persistent historical flooding of the Glenwood Riverfront.
State and Federal regulations and Development Code standards require the protection of areas of
archaeological significance found through development and redevelopment6. Finding objects during the
site preparation process adds time and costs to the development project. Given the State
Archaeologist’s professional opinion that the Glenwood Riverfront has a high probability of possessing
archaeological sites and/or buried human remains, this land would be considered more ‘shovel ready’ if
an archaeological survey7 is conducted prior to the submittal of development applications.
Objective:
Expand awareness of Glenwood’s natural and cultural history.
Policies & Implementation Strategies:
• Collaborate with the Springfield Historic Commission to complete an historic context statement
for Glenwood to: provide an understanding of the trends and events that influenced the
development of the area; and to provide a better context for evaluating the significance of
Glenwood’s potential historic resources, as funding becomes available.
• Collaborate with the Springfield Historic Commission to identify potential projects and themes
to memorialize significant historic structures, sites, events, and/or people in Glenwood in the
design of public art and public spaces in the Glenwood Riverfront, upon completion of an
historic context statement for Glenwood.
5 The environmental assessment for the I‐5 Willamette River Bridge Project cited archaeological investigations in 2003 and 2006
within the I‐5 north/south corridor, including the Glenwood Interchange (outside the GRP boundary). No prehistoric artifacts
or features were discovered; however, historic artifacts were recovered from probes located in the far northeastern portion of
the surveyed area.
6 In Oregon State several laws protect archaeological sites and Native American graves. These include the ORS 97.740 (the
Indian Graves and Protected Objects Act), ORS 358.905‐962 (the Archaeological Objects and Sites Act), ORS 390.235‐240
(Archaeological Sites and Historical Materials), OAR 736‐051‐0000 to 0090 (Administrative Rules for Archaeological Permits),
ORS 166.076 (Abuse of a Memorial of the Dead), and ORS 166.085 (Abuse of a Corpse in the Second Degree).
7 Identification or a “survey” is undertaken for the purpose of locating and compiling information about cultural resources
within a defined geographic area. Survey work is comprised of a number of activities including, but not limited to, research
design, archival research, informant interviews, field survey, and analysis. To assist historic preservation practitioners, the
National Parks Service (as the federal government’s chief steward of the nation’s heritage) has articulated four principles that
form a theoretical basis for the design and implementation of survey projects. These four principles are: Identification and
Survey of Historic Properties are Undertaken to the Degree Required to Make Specific Decisions; Results of Identification
Activities are Integrated Into the Planning Process; Identification Activities Include Explicit Procedures for Record Keeping and
Information Distribution; and Survey Activity Entails Effective Consultation with Concerned Tribes, Local Governments,
Interested Public, Professional Community and Other Governmental Agencies. Specific technical guidance is provided in the
State of Oregon Archaeological Reporting Guidelines.
Attachment 1-3
Historic & Cultural Resources Chapter Draft 1 June 15, 2011
Page 4 of 4
Objective:
Recognize potential historic and cultural resources that exist in the Glenwood Riverfront, as
documented in historic and archaeological resource surveys, and support historic preservation efforts.
Policies & Implementation Strategies:
• Collaborate with the Springfield Historic Commission to continue the survey and inventory
process for potentially historic resources and identify significant historic resources, as funding
becomes available.
• Support efforts of the Springfield Historic Commission and property owners in seeking local
and/or national landmark designation for significant historic resources.
• Require sufficient consideration and documentation of identified potentially significant historic
resources so that future development, redevelopment, and/or demolitions fully address the
identified resources, either through on‐site preservation, off‐site preservation, or through
archival documentation of the resource.
o Develop Plan District standards specifying documentation requirements for: 3007
Franklin Boulevard; 3600 Franklin Boulevard; 3698 Franklin Boulevard; 3787 Franklin
Boulevard; 3998 Franklin Boulevard; 4206 Franklin Boulevard; 295 N. Brooklyn Street;
1475 S. Brooklyn Street; and any future identified potentially significant historic
resources.
• Continue to regulate the preservation, management, and restoration of historic resources that
are added to the City’s Historic Landmark Inventory through the Development Code’s Historic
Overlay District.
• Coordinate with the State Historic Preservation Office to develop a probability model that
depicts the location of areas with a high probability of archaeological sites and/or buried human
remains, as funding becomes available.
• Encourage developers to conduct an archaeological survey to determine whether objects of
cultural or archaeological significance exist prior to excavation of land in areas with a high
probability of archaeological sites and/or buried human remains, as development or
redevelopment occurs.
• Support efforts of the Springfield Historic Commission to restore, preserve, or memorialize sites,
objects, or areas of cultural or archaeological significance.
Attachment 1-4
2010 Glenwood Reconnaissance-Level Survey
McVay Riverfront
Franklin Riverfront
Glenwood Riverfront
RLS Boundary
Attachment 1-5
295 N Brooklyn St
1475 S Brooklyn St
3600 Franklin Blvd
3698 Franklin Blvd
3787 Franklin Blvd3007 Franklin Blvd
4206 Franklin Blvd
3998 Franklin Blvd(whole shaded MH park lot)
Phase 1 Boundary
Reconaissance-LevelSurvey Extent
Properties Warranting
Further Examination
Structures Identified in RLS
123 Main St
Phase 1: InventoriedHistoric Resources
Attachment 1-6