HomeMy WebLinkAboutItem 01 TSP Implementation Project AGENDA ITEM SUMMARY Meeting Date: 8/26/2019
Meeting Type: Work Session
Staff Contact/Dept.: Emma Newman/DPW
Staff Phone No: 541.726.4585
Estimated Time: 90 Minutes
S P R I N G F I E L D
C I T Y C O U N C I L
Council Goals: Maintain and Improve
Infrastructure and
Facilities
ITEM TITLE: TRANSPORTATION SYSTEM PLAN IMPLEMENTATION PROJECT
ACTION
REQUESTED:
Provide direction on remaining items in order to prepare for a joint public hearing
with Lane County.
ISSUE
STATEMENT:
The City of Springfield adopted the 2035 Transportation System Plan (TSP) in
2014. The TSP Implementation Project is following direction from the adopted TSP
to update the Springfield Development Code (SDC), adopt a Conceptual Street Map
as a new TSP Figure, and make some changes to the TSP Project List and existing
Figures to further implement already adopted policies.
ATTACHMENTS: Attachment 1: Communication Briefing Memo
Attachment 2: Conceptual Street Map – revised Aug 2019
Please bring your paper copies of the TSP Implementation Project Planning
Commission Recommendation and TSP that were provided to Council previously.
The Planning Commission Recommendation and current TSP can be found in
electronic form on the project webpage.
DISCUSSION/
FINANCIAL
IMPACT:
Council is developing Council Alternatives to accompany the Planning
Commission recommendation for a joint public hearing with Lane County.
Staff is seeking direction from Council on a few remaining items in order to prepare
for the joint public hearing. Attachment 1: Council Briefing Memo describes the
remaining items and questions for Council.
October 7th Council work session is tentatively scheduled for any follow up that
may be needed for the TSP Implementation project prior to public hearing. If
Council is ready to proceed with the public hearing after tonight’s meeting, staff
will work with Lane County to start scheduling the Board of County
Commissioner’s first reading and the joint public hearing.
M E M O R A N D U M City of Springfield
Date: 8/26/2019
To: Mary Bridget Smith COUNCIL
From: Tom Boyatt, Community Development Director
Emma Newman, Senior Transportation Planner
BRIEFING
Subject: TRANSPORTATION SYSTEM PLAN
IMPLEMENTATION PROJECT MEMORANDUM
ISSUE:
The City of Springfield adopted the 2035 Transportation System Plan (TSP) in 2014. The TSP
Implementation Project is following direction from the adopted TSP to update the Springfield
Development Code (SDC), adopt a Conceptual Street Map as a new TSP Figure, and make some
changes to the TSP Project List and existing Figures to further implement already adopted
policies.
COUNCIL GOALS/
MANDATE:
Maintain and Improve Infrastructure and Facilities
BACKGROUND:
Throughout this document the plain Code text is a clean version of the Planning Commission’s
Recommendation. For full track changes, see Planning Commission Recommendation Exhibit A
on the project webpage: http://www.springfield-or.gov/city/development-public-
works/transportation-system-plan/.
The green highlighted text reflects the draft Council Alternative.
The teal highlighted text reflects draft amendments to address technical incompatibility issues
between different sections of the Code.
Question 1 – Does Council want to keep the recommended Street Network Standards as
shown or further revise them for public hearing?
Street Network Standards – Council Alternative with No Local Street Network Map:
Council directed Staff during Work Session on June 10, 2019 to develop a Council Alternative
for street connectivity policy implementation that does not include a Local Street Network Map
and relies only on the written standards in the Springfield Development Code. Staff removed the
former section 4.2-105D.2.a. that referenced the map as shown below in green highlighted
strikethrough text.
Street Network Standards – Multi-Unit Design Standards:
Following the Planning Commissions making their Recommendations, Staff noticed an internal
technical incompatibility between the Street Network Standards recommended Code
amendments and the existing Multi-Unit Design Standards for blocks. Staff recommends adding
the teal highlighted text shown below to the Street Network Standards and removing the existing
SDC 3.2-240D.9.c to resolve the conflict.
The maximums of 2,400 feet for block perimeter and 800 feet for block length were developed
Attachment 1, Page 1 of 9
MEMORANDUM Page 2
to create clear and objective standards for multi-unit development, while also providing more
flexibility than the existing code language. The new standards are intended to provide for block
length and perimeter sizes that are more than twice that of a typical single family/low density
residential block area to help facilitate more diverse and flexible options in laying out multi-unit
housing development.
Context: The Street Network Standards – General Criteria (SDC 4.2-105D) are applicable to any type of
development. These standards require that collector and arterial streets comply with the TSP. Local
streets would need to meet the set standards in the Code. The General Criteria allows for some discretion
and flexibility in meeting the need for a connected transportation system.
D. Street Network Standards – General Criteria.
1. Collector and Arterial Streets. Subject to the standards of this code, the location of
collector streets and arterial streets must comply with the Transportation System Plan,
including the Conceptual Street Map.
2. Local Streets. The local street network, which includes pedestrian accessways and
multiuse paths, must meet the following standards:
a. Local streets with connection points in the general location shown on the
Local Street Network Map are allowed. Alternatives that meet and comply with the
other standards in this subsection are also allowed. 1
a. The local street network must efficiently and safely accommodate all modes
of travel including pedestrians, bicyclists, and emergency fire and medical service
vehicles.
b. The local street network must not create excessive travel lengths, particularly
for pedestrians and cyclists.
c. Streets must be interconnected to provide for the efficient provision of public
and private utilities.
d. The local street network must safely accommodate pedestrians and cyclists.2
e. Streets must provide connections to and from Neighborhood Activity Centers
and other areas that attract high levels of pedestrian and bicycle traffic, or alternative
bicycle or pedestrian facilities must provide connections where street connections are
not practical.
f. The alignment of local streets must mitigate impacts to waterways and
wetlands, and must follow slope contours where possible.
g. The alignment of local streets must enhance the efficiency of the regional
collector and arterial street system by balancing traffic volumes on local streets to
promote optimum dispersal.
1 Local Street Network Map removed per Council direction.
2 Criteria d. combined with a. to be more concise.
Attachment 1, Page 2 of 9
MEMORANDUM Page 3
h. The local street network must provide logical and efficient extensions of the
public street system to adjoining properties.
3. Dead-End Streets.
a. Dead-end streets must terminate in a cul-de-sac bulb, “hammerhead,” or
other design that provides adequate vehicular turn-around areas, Public Works access,
and pedestrian and bicycle connections as approved by the Director and the Fire
Marshal. When development generates additional vehicular trips on an existing dead-
end street without a turnaround area, the development must include a turnaround
area on the dead-end street that meets the requirements of this subsection.
b. A dead-end street, excluding the bulb or other approved vehicular turn-
around area, must have a minimum length of 65 feet and must have a maximum length
of 400 feet as measured from the nearest curb line of the intersecting street. The right-
of-way and paving requirements for cul-de-sac bulbs and other approved vehicular
turn-around areas are as specified in Table 4.2-1 of this Code, the Oregon Fire Code,
the Development & Public Works Standard Construction Specifications and the City’s
Engineering Design Standards and Procedures Manual.
EXCEPTION: Where streets that are planned to be through streets are partially
constructed during phased development, temporary dead-end streets with temporary
vehicular turn-around that meet the requirements for a dead-end fire apparatus access
road will be permitted with a maximum length of 600 feet as measured from the
nearest curb line of the intersecting street.
4. Block Length and Block Perimeter
a. Block perimeter for all street classifications must not exceed the following
maximums, except as provided or exempted elsewhere in this Code or in an
applicable Refinement Plan or Plan District:3
i. 1,400 feet in Mixed-Use Districts consistent with standards in Section
3.2-625E;
ii. 2,600 feet in industrial zoning districts;
iii. 2,400 feet for multi-unit development subject to Section 3.2-240A;
and
iv. 1,600 feet in other zoning districts.
b. Block length must not exceed:
i. 600 feet for local streets not in industrial zones or that do not serve
industrial non-conforming or the maximum block length established in an
applicable Refinement Plan or Plan District, whichever is less;
ii. 800 feet for multi-unit development subject to Section 3.2-240A or
the maximum block length established in an applicable Refinement Plan or
Plan District, whichever is less;4
iii. 1,000 feet for local streets in industrial zones or that serve industrial
non-conforming uses or the maximum block length established in an
applicable adopted Refinement Plan or Plan District, whichever is less.
3 Language added to prevent creating additional internal inconsistencies in the Code.
4 Amendments recommended to address technical incompatibility issue between different sections of the Code.
Attachment 1, Page 3 of 9
MEMORANDUM Page 4
d. EXCEPTION: The Director may authorize a block length or block perimeter that
exceeds the applicable maximum specified in this Section. In authorizing a
block length or block perimeter that exceeds the above maximum lengths, the
Director may establish requirements for interim street connectivity and/or
pedestrian accessways consistent with standards in Section 4.2-160. Where
the extension of a public street would create a block length or block perimeter
that exceeds the applicable maximum, the block length and block perimeter
must be as close as possible to the applicable maximum. The Director will
authorize an exception only if the applicant/developer demonstrates that the
existence of any of the following conditions justifies the exception:
i. Physical conditions that cannot be mitigated necessitate a block
length or block perimeter that is longer than the applicable
maximum. These conditions may include topography or the existence
of physical features, including, but not limited to: wetlands, ponds,
streams, channels, rivers, lakes, steep grades, or a resource under
protection by State or Federal law; or
ii. Buildings or other existing development on adjacent lands, including
previously subdivided but vacant lots or parcels that physically
necessitate a block length or block perimeter that is longer than the
applicable maximum considering the potential for redevelopment; or
iii. Industrial development areas greater than 25 acres pursuant to an
adopted Master Plan.
Context: The Street Network Standards – Needed Housing (SDC 4.2-105E) are only applicable to
residential development. They are a set of standards that are necessary to fulfill the clear and objective
requirements established in Oregon land use Statewide Planning Goal 10: Housing. As with the General
Criteria, collector and arterial streets must comply with the TSP. Because they are clear and objective
requirements, they do not provide for flexibility – either the proposed development meets the requirements
or it does not. However, residential developers can choose to switch tracks to use the General Criteria if
they do not wish to use the Needed Housing criteria.
E. Street Network Standards – Needed Housing. The development of needed housing, as defined
in ORS 197.303, must meet the following street network standards, unless the applicant elects
review under the general criteria in Section 4.2-105D.
1. Collector and Arterial Streets. Subject to the standards of this Code, the location of
collector and arterial streets must comply with the Transportation System Plan,
including the Conceptual Street Map.
2. Local Streets. The local street network must meet the following standards:
a. New local streets, pedestrian accessways, and multiuse paths within a
development area must connect to all existing or planned local streets,
accessways, and multiuse paths, respectively, including truncated or “stub”
streets, accessways, or multiuse paths that abut the development area. For
the purposes of this Section, a planned street, accessway, or multiuse path
means unimproved dedicated right-of-way; a street or multiuse path adopted
in the Transportation System Plan; or a street, accessway, or multiuse path
shown in an approved Master Plan, Site Plan, Conceptual Development Plan,
or Subdivision Plan.
Attachment 1, Page 4 of 9
MEMORANDUM Page 5
b. Where there is an existing or planned local street or multiuse path within ¼
mile of the outer boundary of the development area, a new local street or
multiuse path must extend to the outer boundary lines of the development
area in alignment with the centerline of existing or planned street or multiuse
path. The new street or multiuse path and existing or planned street or
multiuse path are in alignment if the angle between the projection of the
centerlines of both streets is not less than 170 degrees or more than 190
degrees.
c. Local streets spaced no greater than 600 feet apart from centerline to
centerline must extend to all undeveloped or underdeveloped land that is
adjacent to the development area, zoned or designated for residential or
mixed use, and 5 contiguous gross acres or larger. For the purposes of this
Section, “underdeveloped” means lots and parcels that are developed at less
than half the minimum residential density required in the underlying zoning
district.
d. The number of new local street intersections with major collector or arterial
streets that provide ingress or egress to the development area must be the
smallest number necessary to ensure that not more than 100 dwelling units
are attributed to any one intersection with a major collector or arterial street,
including via existing local streets that intersect major collector or arterial
streets outside the development area. A dwelling unit is attributed to the
intersection of a local street and major collector or arterial street that has the
smallest travel distance from the centerline of the street at the midpoint of
the dwelling unit’s frontage to the centerline of the street at the boundary
line of the development area.
e. EXCEPTION: Street, accessway, and multiuse path connections to adjacent
property under Sections 4.2-105E.2.a through 4.2-105E.2.d above are not
required where the following barriers physically prevent their construction:
railroad right-of-way, limited access highway or freeway right-of-way, existing
development, streets that would be unable to meet the slope standards
specified in Section 3.3-525, natural resource protection areas listed in Section
4.3-117B, or Historic Landmark Sites or Structures established on the Historic
Landmark Inventory according to Section 3.3-920 of this Code.
f. Developments must provide fire apparatus access roads as required by and in
compliance with the Oregon Fire Code.
3. Cul-de-sacs and Dead-End Streets. New and existing dead-end streets and cul-de-sacs
must meet the standards for dead-end fire apparatus access roads in the Oregon Fire
Code and the following standards:
a. Cul-de-sacs and dead-end streets that are not planned to be through streets
are permitted only when physical barriers prevent the construction of through
streets or stubbed streets that meet the local street network standards in
Section 4.2-105E.2, or the block length and block perimeter standards in
Section 4.2-105E.6. Physical barriers are railroad right-of-way, limited access
highway or freeway rights-of-way, existing development, streets that would
be unable to meet the slope standards specified in Section 3.3-525, natural
resource protection areas listed in Section 4.3-117B, or Historic Landmark
Sites or Structures established on the Historic Landmark Inventory according
to Section 3.3-920 of this Code.
Attachment 1, Page 5 of 9
MEMORANDUM Page 6
b. All cul-de-sacs and dead-end streets, including stubbed streets required under
Sections 4.2-105E.2.a through 4.2-105E.2.c above, must meet the length
standards in Section 4.2-105D.3.b.
c. A cul-de-sac or dead-end street that is not a stubbed street must include one
or more pedestrian accessways or multiuse path connections from the cul-de-
sac or dead-end street to an existing or planned street, accessway, or multiuse
path when the cul-de-sac or dead end street is within ¼ mile of a
Neighborhood Activity Center, as measured in a straight line from the nearest
outer boundary of the Neighborhood Activity Center to the centerline of the
dead-end street at its terminus or the center point of the cul-de-sac. The
accessway or multiuse path must be located in a manner that would shorten
the walking and biking distance from the cul-de-sac or dead-end street to the
Neighborhood Activity Center as compared to the shortest walking or biking
distance without the connection.
EXCEPTIONS: An accessway or multiuse path is not required where physical
barriers listed under Section 4.2-105E.3.a above prevent construction of any
accessway or multiuse path under this section, or when no accessway or
multiuse path would decrease the walking or biking distance from the cul-de-
sac or dead-end street to the Neighborhood Activity Center.
4. Block Length and Block Perimeter.
a. Block perimeter for all local and minor collector streets must not exceed the
following maximums:
i. 1,400 feet in Mixed-Use Districts, consistent with standards in
Section 3.2-625E;
ii. 2,400 feet for multi-unit development subject to Section 3.2-240A;
and
iii. 1,600 feet for all other development and in all other zoning districts.
b. Block length for local streets must not exceed:
i. 800 feet for multi-unit development in residential zoning districts; 5
and
ii. 600 feet for all residential development other than multi-unit
development in all zoning districts.
5. Maximum Street Grades. Street grades must not exceed 8% on major and minor
arterial streets, 10% on major and minor collector streets, and 12% on local streets.
6. Intersections of Streets and Alleys.
a. Angles. Streets and alleys must intersect one another at an angle as close to a
right angle (i.e. 90 degrees) as possible. Street intersections must have a
minimum intersection angle of 80 degrees. All legs of an intersection must
meet the above standard for at least 100 feet from the point of intersection of
the street centerlines. No more than two streets may intersect at any location
(i.e. not creating more than a four-legged intersection) unless at a
roundabout.
b. Intersection Offsets. Intersections must be offset at least 100 feet on a local
street, 200 feet on a minor collector street, and 400 feet on a major collector
or arterial street, or the safe stopping sight distance as determined by the
5 Amendments recommended to address technical incompatibility issue between different sections of the Code.
Attachment 1, Page 6 of 9
MEMORANDUM Page 7
AASHTO publication “A Policy on Geometric Design of Highways and Streets,”
whichever is greater. Offset distance must be measured from the curb or
edge of pavement or, where there is no curb, to the closest curb or edge of
pavement of the next offset street.
Council Options for Question 1:
Present Street Network Standards Council Alternative shown above for public hearing
Further revise Street Network Standards Council Alternative
Question 2 – How should the internal Code inconsistency for planter strips for Multi-Unit
Development for local streets be addressed?
Staff noticed an internal inconsistency between the Planning Commission Recommendation/City
Council Alternative and the existing Multi-Unit Design Standards with regards to planter strips
on local streets. For consistency with previous direction on the Public Streets standards (Table
4.2-1), Staff recommends removing the planter strips section from the multi-unit design
standards (SDC 3.2-240D.6.b):
b. Planter strips shall be required for all multi-unit development of collector and arterial
streets, but is optional on local streets. Planter strips shall be a minimum of 4.5 feet wide,
placed between the back of curb and the sidewalk, along public or private streets;
Council Options for Question 2:
Remove planter strips section from Multi-Unit Design Standards to address conflict with
Public Streets standards in Council Alternative and Planning Commission
Recommendation
Provide direction to staff on how to address Code inconsistency
Question 3 – Does the revised Private Streets section sufficiently respond to Council
direction?
At the May 6, 2019 Council Work Session, Council directed Staff to develop a Council
Alternative for Private Streets (SDC 4.2-110) that allows Private Streets to meet driveway
standards in places where Private Streets are currently allowed outright by the Code: Mobile
Home/Manufactured Dwelling Parks, Multi-Unit Development, and singularly owned
commercial or industrial developments. Below is the draft revised code language that Staff has
developed in response to Council’s direction, with green highlight showing the changes from the
existing Code.
4.2-110 Private Streets
A. Private streets are permitted within the development area of Mobile Home/Manufactured
Dwelling Parks, Multi-Unit Development, and singularly owned commercial and industrial
developments of sufficient size to permit interior circulation.
B. Private street improvements must meet the driveway standards in Section 4.2-120C and must
be constructed as specified in the City’s Engineering Design Standards and Procedures Manual
and in the Development & Public Works Standard Construction Specifications. Construction
specifications for private streets shall be the same as for public streets.
Attachment 1, Page 7 of 9
MEMORANDUM Page 8
EXCEPTION: During the Site Plan Review, Partition or Subdivision processes involving private
streets, the Public Works Director may allow alternative construction materials and methods to
be used.
CB. The Approval Authority shall require a Homeowner's Agreement or other legal assurances
acceptable to the City Attorney for the continued maintenance of private streets.
Council Options for Question 3:
The revised Private Streets section (SDC 4.2-110) sufficiently responds to direction
Provide direction on further revisions
Informational Update – TSP Project R-45 Modification, Sports Way Correction, and
Conceptual Street Map Formatting Revision
Staff has modified TSP Project R-45 (Improvements within the Jasper-Natron Area) to be
consistent with recent development application decisions near Mineral Way and Council
direction for more flexibility. Mineral Way was removed from the recommended Conceptual
Street Map since it is being built as a local street instead of a collector street to match the already
built stubbed street connection dimensions. Additionally, R-45 shown on the Conceptual Street
Map to the east of Bob Straub Parkway has been shortened and arrows have been added to the
north, east, and south from Brand S. and south from Farm Road to provide more flexibility for
development in the area while ensuring a collector street network is planned for in the area.
Staff noticed that the northern segment of Sports Way and Royal Caribbean Way were shown as
existing minor collectors. The map has been corrected to reflect current conditions and show the
segments that are not yet complete as planned minor collectors instead.
Additionally, since the Conceptual Street Map will be adopted into the Springfield
Transportation System Plan as Figure 12, it has been reformatted to match other TSP Figures.
Attachment 2 incorporates the revisions described above.
Question 4 – Any additional Council Alternatives?
Council decided to develop Council Alternatives for various items to put out to public hearing
alongside the Planning Commission Recommendation. So far, Council has developed or
considered Council Alternatives for the following items:
TSP Project S-17 Description (Don/Lochaven)
SDC Table 4.2-1 Minor Collector Street Standards
SDC 4.2-110 Private Streets
SDC 4.6-110G Motor Vehicle On-Street Parking Reduction
SDC 4.6-110M-N Motor Vehicle Parking Right-Sizing and Table 4.6-2 Motor Vehicle
Parking Space Requirements
SDC 4.2-105 Street Network Standards
SDC 3.2-240 Multi-Unit Design Standards Technical Incompatibility Issue
TSP Project R-45 Modification, Sports Way Correction, and Conceptual Street Map
Formatting Revision
Attachment 1, Page 8 of 9
MEMORANDUM Page 9
Council Options for Question 4:
There are no further items that Council would like to discuss prior to public hearing
Provide direction on developing additional Council Alternative(s)
RECOMMENDED ACTION: Provide direction on remaining items in order to prepare for a
joint public hearing with Lane County.
Attachment 1, Page 9 of 9
CENTENNIAL BLVD
A ST
W D STGATEWAY ST5TH STQ ST
S 42ND ST28TH STFAIRVIEW DR
DAISY STVIRGINIA AVE19TH STS 57TH STS 70TH STYOLANDA AVE
MAIN ST
COMMERCIA
L
A
V
E
BOB STRAUB PKWY31ST ST7TH ST36TH STHIGH BANKS RD
66TH STMT VERNON RD42ND STE ST
58TH STS 28TH STS A ST
G ST
14TH STMILL
ST
W CE N T E N NIAL BLVD
S 67TH STMARCOLA RD
HARLOW RD
48TH STS
2
N
D STHAYDEN BRIDGE RD
THURSTON R D
OLYMPIC ST
MCKENZIE HW
Y
B ST
J
ASPER RDASPEN STGLENWOOD BLVDMCVAY HWYLAURA ST21ST ST69TH STS 32ND STMOU NTAINGATE D R35TH ST30TH ST126
126
5
Springfield, Oregon
Springfield TSP
Conceptual Street MapFIGURE 12 Geogr
ap
hic Informat i o n S ervicesInform a t ion Technolo
g
y DeptAug
2019
Miles
0 0.25 0.5 1
N
Willamalane Park &Recreation Property
Major/Minor Arterial
Multi-use Path
Local Street
Major/Minor Collector
City Limits
Urban Growth Boundary (2015)
Water Body
Legend
PLANNEDEXISTING
KlamathDouglas
Coos
LinnBenton
Lincoln
Lane
Vicinity Map
DRAFT
Attachment 2, Page 1 of 1