HomeMy WebLinkAboutItem 02 Planning Work Program AGENDA ITEM SUMMARY Meeting Date: 4/52021
Meeting Type:Work Session
Staff Contact/Dept.:Sandy Belson/DPW
Staff Phone No:735-7136
Estimated Time: 20 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: Promote and Enhance
our Hometown Feel
while Focusing on
Livability and
Environmental Quality
ITEM TITLE: CITY’S PLANNING WORK PROGRAM – STATUS UPDATE
ACTION
REQUESTED:
Receive update on status of the comprehensive planning work program.
ISSUE
STATEMENT:
The City has limited resources for comprehensive (long-range) planning. Staff has
followed Council guidance to best utilize these resources to meet Council’s goals
and objectives as well as mandated requirements. This agenda item provides
information on the progress of those efforts and a look at what is to come.
ATTACHMENTS: Attachment 1: Council Briefing Memorandum
Attachment 2: Work Program Schedule
DISCUSSION/
FINANCIAL
IMPACT:
Outside funds help support the city’s involvement in three of the projects described
in the memo and listed on the schedule. These include the Regional Transportation
Plan, the Wetlands and Riparian Inventory and Assessment, and the Main Street
Safety Project. Most of the city’s work in comprehensive planning is funded
through the general fund and utility funds (as appropriate).
Several legislative requirements have resulted in land use planning mandates. As
described in the attached memo, there is potential for more this session. While
some of these mandates have included funding to the Oregon Department of Land
Conservation and Development to pass on to local governments as technical
assistance grants, there is no guarantee that the City of Springfield will receive
funding. The Oregon Department of Transportation has funds dedicated to the
required scenario planning that will come out of the Climate Friendly-Equitable
Community rulemaking. But those funds will likely pay for consultants and the
local jurisdictions will need to pay the salaries of the staff involved. City staff will
continue to identify grant and other funding opportunities to supplement the city’s
budget. However, absent additional funding sources or an increase in local funding,
the City may need to limit planning projects to those that meet federal and state
mandates, leaving local priorities to be addressed as resources become available.
One example of the city’s efforts to seek additional funding is the Annual
Appropriations Community Project Request submitted to Congressman DeFazio
this week. This request is for federal funding to re-evaluate a local system solution
to address the capacity and safety constraints of the Gateway/Beltline intersection.
This work would build on the Transportation Scoping Project described in the
attached memo.
This Work Session is intended to inform Council of current projects and confirm
Council priorities.
M E M O R A N D U M City of Springfield
Date: 3/23/2021
To: Nancy Newton COUNCIL
From: Sandy Belson, Comprehensive Planning Manager
Tom Boyatt, Community Development Director
BRIEFING
Subject: Comprehensive Planning Work Program MEMORANDUM
ISSUE: The City has limited resources for comprehensive (long-range) planning. Staff has
followed Council guidance to best utilize these resources to meet Council’s goals and objectives
as well as mandated requirements. This agenda item provides information on the progress of
those efforts and a look at what is to come.
COUNCIL GOALS/
MANDATE:
Promote and Enhance our Hometown Feel While Focusing on Livability and Environmental
Quality
BACKGROUND
Periodically, staff schedules a Work Session with City Council to review current comprehensive
planning projects and take a peek at the future. Most recently, these took place on September
16, 2019 and January 27, 2020 with a follow-up communication memo dated February 13, 2020.
Over the past year, staff have made progress completing the Transportation System Plan
Implementation Project and submitting a grant application with Eugene for Franklin Blvd
improvements. Some projects experienced delays as we shifted to remote work, learned new
technologies, redesigned public involvement efforts, and took time to organize a new file
structure and transition the department’s electronic files to SharePoint. Select staff worked in
the Emergency Operations Center supporting the response efforts to the pandemic and Holiday
Farm Fire. Overall, staff have continued to carry out their work remotely, and this memo
provides a status report on current and anticipated projects.
The memo only includes comprehensive planning projects. It does not include other types of
activities such as staffing of committees/commissions, seeking and tracking transportation
funding, and standard intergovernmental coordination. The extensive project list points to the
fact that staff manage multiple priorities, including state and federal mandates. Adding a project
generally means another project must be put on hold or at least slowed down. This Work
Session is intended to inform Council of current projects and confirm Council priorities.
MEETING FEDERAL REQUIREMENTS
Regional Transportation Plan
The Central Lane Metropolitan
Planning Organization (MPO)
launched a substantial update of
the Regional Transportation Plan (RTP). The RTP is a federally-required plan that includes
provisions for meeting the transportation demand of residents over at least a 20-year planning
horizon while addressing transportation issues and making changes that can contribute to
improvements in the region’s quality of life and economic vitality. It includes consideration of
all transportation modes: roadways, transit, bikeways and pedestrian circulation, as well as
Attachment 1, Page 1 of 6
MEMORANDUM Page 2
freight movement and regional aspects of air, rail, and inter-city bus service. This project
includes updates to the Congestion Management Process (CMP) and the Intelligent
Transportation System (ITS) Architecture, Operations, and Implementation Plan. The update is
anticipated to be completed by the end of 2021. Once the updated plans are ready, they will go
to the Metropolitan Policy Committee (MPC) for adoption.
MEETING STATE REQUIREMENTS
Middle Housing & Clear and Objective Standards
As directed by Council, the Development Code Update Project is addressing legislation that
requires clear and objective standards for housing (House Bill 1051 passed in 2017) and
allowance of middle housing types in areas that allow single-family detached dwellings (House
Bill 2001, passed in 2019).
Comprehensive Plan Map, Housing Needs Analysis, & Housing Production Strategy
House Bill 2003, passed in 2019, requires cities outside the Portland Metro area with a
population of greater than 20,000 to update its Housing Needs Analysis at least every eight
years. Springfield’s required adoption date is 2025. Housing Needs Analyses are based on the
potential housing that could be developed based on the Comprehensive Plan. Having an
accurate Comprehensive Plan map on which to base the inventory is a desirable first step that
would be addressed as part of this project. This Comprehensive Plan Map would replace the
Metro Plan Diagram for land within Springfield’s urban growth boundary (UGB), and also
involve writing a Land Use Element that would replace much or all of the text in Chapter II-G-
16 of the Metro Plan. Although there have been numerous amendments to the Metro Plan
Diagram, the Diagram itself has not been updated to incorporate the amendments adopted since
2004. Nor has it been updated to show Springfield’s new UGB. The resulting electronic
Comprehensive Plan Map would provide staff and the public with better access to information
and an accurate base to use for the required Housing Needs Analysis.
Based on the results of the
Housing Needs Analysis, the
City may need take measures to
accommodate the identified
needed housing within the UGB.
If it is found that an expansion of
the UGB is necessary to meet the
city’s housing needs, the UGB
expansion must be co-adopted by
the City and County along with
the Housing Needs Analysis
before the end of 2025, and this
will be a major undertaking. The
City must also adopt a Housing Production Strategy within one year of the Housing Needs
Analysis. The Housing Production Strategy must include a list of specific actions that the City
will undertake to promote residential development within the city to address the housing needs
identified in the Housing Needs Analysis.
Climate Friendly and Equitable Communities Rulemaking
As described in more detail in Emma Newman’s Communication Packet Memo dated March 29,
2021, this rulemaking process will result in requirements for cities such as Springfield to amend
its adopted plans and the development code to encourage/require more mixed use development
and transportation systems that reduce reliance on greenhouse gas intensive transportation
Attachment 1, Page 2 of 6
MEMORANDUM Page 3
modes. It is not yet clear how these required amendments will integrate with other required
planning efforts.
Pending Legislation
There are at least four bills that are processing through legislative committees that would require
amendments to the Development Code and potentially the Comprehensive Plan. House Bill
2558 would require Springfield to allow high density development within one-eighth mile of
EmX stops for properties zoned residential or mixed-use. House Bill 2283 and Senate Bill 458
would create an alternative land division process to allow dividing the middle housing types
(duplex, triplex, fourplex, cottage cluster) that are built on a single lot or parcel. House Bill
2488 would create a statewide land use planning goal on climate justice. This goal would require
the city to take actions, including amendments to the comprehensive plan, to address climate
change and environmental justice and equity by June 30, 2025.
PREPARING UGB EXPANSION AREAS FOR DEVELOPMENT
As noted in the memorandum for the September 16, 2019 Work Session, there are a number of
planning tasks that must be completed before property owners in the urban growth boundary
(UGB) expansion areas can consider annexation and urban development.
Drinking Water Protections
This project applies the Drinking Water Protection Overlay District
to the areas of the expanded UGB that are within the Time of Travel
Zones for our drinking water wells. City staff is coordinating with
the Springfield Utility Board and Rainbow Water District for their
review of the draft staff report. The Hearings Official will conduct the public hearing as it
involves land outside the city limits.
Wetland and Riparian Inventories and
Assessments
With a grant from the Department of Land
Conservation and Development and financial
support from the Springfield Utility Board, the
City hired Summit West and Terra Science to
undertake a wetland and riparian inventories and
assessments for the UGB expansion areas. The
City and County will then co-adopt protections
for the resources determined to be locally
significant.
As a follow-on project, City staff will ensure the
GIS mapping (or data) for wetland and riparian
resources within the former extent of the UGB
are current and will create an implementation
Guidebook for staff. This Guidebook will
outline the process for updating the local
wetlands inventory with State-approved wetland
delineations.
Water Quality Limited Watercourses
The City and County will need to co-adopt an
updated map of the water quality limited watercourses that flow through the UGB expansion
Attachment 1, Page 3 of 6
MEMORANDUM Page 4
areas. It is likely that this adoption process will be combined with the one that addresses the
wetland and riparian resources, as there are overlapping protections.
Transportation Scoping for Gateway
Of all the required planning to be done to
prepare North Gateway for urbanization,
addressing the state’s transportation planning
rule and traffic congestion in the area is the
most challenging. Springfield’s 2035
Transportation System Plan includes the
Kruse-Hutton couplet (Project R-50) as
identified in the current TSP to alleviate
congestion in the area, particularly at the
Gateway-Beltline intersection. However, this
project would require removal of several
businesses. The transportation issues at I-
5/Beltline include meeting federal
requirements such as conducting an
Environmental Assessment under the National
Environmental Policy Act (NEPA). Passage of
time since the approval of the 2003 Revised
Environmental Assessment for I-5 Beltline
(including a solution at Gateway/Beltline), and
the need to find a new solution at
Gateway/Beltline that does not rely on the
couplet and includes provision for North
Gateway UGB expansion land, make this a
complex, expensive and time consuming effort.
The analysis requires the expertise of transportation consultants familiar with what it takes to
obtain state and federal approvals. As land use and transportation are inextricably linked, the
property owners and City would also need to work together to amend land use plans to include
the expansion area and identify the desired zoning for the employment lands. As directed by
Council, the City hired Kittelson & Assoc. Inc. to work with staff to further define the problem,
identify the information necessary to conduct analysis, and outline the tasks involved in
embarking on a successful planning project.
Funding to implement the work that will be identified in the early scan step described above has
not been identified and is estimated at $1,000,000.
FOCUS ON GLENWOOD
Glenwood Riverfront Stormwater Conceptual Design
The Glenwood neighborhood developed without a well-organized stormwater system that serves
the area. In 2014, the Oregon Department of Land Conservation and Development
acknowledged Springfield’s 2012 adopted Phase I Glenwood Refinement Plan. In 2019,
Springfield completed a stormwater drainage evaluation as the next step in stormwater planning
to support future public infrastructure and private development in Glenwood. The City hired
Environmental Science Assoc. to develop stormwater concept designs for the McVay and
Franklin Blvd Riverfronts to ensure that stormwater infrastructure constructed to support phased
redevelopment is adequately sized, does not limit stormwater management opportunities for
planned buildout in the riverfront areas, and complies with the City’s National Pollution
Discharge Elimination System (NPDES) municipal separate storm sewer systems (MS4) permit.
Attachment 1, Page 4 of 6
MEMORANDUM Page 5
The consultants have completed this concept design which will be brought to Council for
approval this spring.
Seeking Funding for Franklin Blvd
Last year, the Cities of Eugene and Springfield, with support from the Lane Transit District,
submitted a grant request for federal funding for improvements to Franklin Blvd in both cities.
Although not selected for the federal 2020 BUILD
(Better Utilizing Investments to Leverage
Development) grant, the project scored very well.
With encouragement from the US Department of
Transportation staff to reapply with minimal changes
to the application, both cities are committed to
submitting an updated application this year. The
City is also working with the federal delegation to
identify other potential funding sources for this
project to enhance the multi-modal corridor that is
vital to the economic development of both cities.
ADDRESSING LOCAL NEEDS
Main Street Safety Project – Facility Plan
Springfield’s Main Street is consistently
ranked as one of the most unsafe city streets
in Oregon based on the severity and
frequency of traffic crashes. The City of Springfield and the Oregon Department of
Transportation are engaging our Springfield community and working to identify thoughtful and
effective safety solutions for all Main Street users. The Main Street Facility Plan is the
coordinated work product that pulls together analysis, public outreach and design concepts
developed during the project’s Planning Phase. It is an expression of the community’s values
that becomes the design framework for project development to construct safety improvements in
the corridor.
Development Code Update
The Springfield Development Code is the principle document
that implements local, state, and federal land use,
transportation, and environmental laws applicable in the City of
Springfield. The Council has directed staff to complete a full
Development Code Update. The Council Work Session on
March 15, 2021 provided a more complete update. As noted
above, this project will also ensure that the City complies with
recent legislation that requires clear and objective standards for
housing (House Bill 1051 passed in 2017) and allowance of
middle housing types in areas that allow single-family detached dwellings (House Bill 2001
passed in 2019).
Incorporate Adopted Amendments into Neighborhood Refinement Plans
Springfield has eight refinement plans: Downtown, East Kelly Butte, East Main, Gateway,
Glenwood Phase 1, Glenwood (first Glenwood Plan adopted in 1999), Mid-Springfield, and Q
Street. The Refinement Plans do not reflect the adopted amendments that have occurred over
the years. Incorporating adopted amendments to the maps and text into the electronic versions
of the refinement plans is a service priority and will inform the creation of a Springfield-specific
Comprehensive Plan map (a project referenced earlier on page 2). Through research of
ordinances, text of older versions of Springfield’s refinement plans, and the plan diagrams
Attachment 1, Page 5 of 6
MEMORANDUM Page 6
(maps), planning staff is working with GIS staff and the City Attorney’s Office to ensure that
these plans are accurate.
Wastewater Master Plan
The City of Springfield provides wastewater collection and conveyance services using a system
of pipelines and pump stations. Along with the City of Eugene, Springfield discharges to the
regional wastewater treatment facility owned by the Metropolitan Wastewater Management
Commission. The Wastewater Master Plan assesses existing and future needs for the City’s
collection system and identifies capital improvements necessary to meet projected population
and employment growth and to comply with the City’s National Pollutant Discharge Elimination
System (NPDES) permit for discharging treated wastewater into the Willamette River. The City
has completed all system improvements identified in the 2008 Wastewater Master Plan.
Planning for infrastructure to serve land within the UGB is a requirement of Statewide Planning
Goal 11 – Public Facilities and Services. The City intends to release a Request for Proposals in
order to hire a consultant to work with the City on this effort.
Willamalane Park Planning Coordination
Willamalane is taking the lead on preparing a
master plan for the Georgia-Pacific Natural Area.
This property is co-owned by the City, Springfield
Utility Board, and Willamalane. Coordination on
the master plan also involves reviewing and updating associated co-owner intergovernmental
and management agreements. The wetland and riparian inventory work for the UGB expansion
areas has informed the natural resources aspects of this project. Willamalane will seek Council
approval of the Georgia Pacific Natural Area master plan by resolution later this year.
As staff capacity allows, Willamalane also intends to begin updating its Park and Recreation
Comprehensive Plan (adopted 2012) with support from City staff. The City adopts
Willamalane’s Plan into Springfield’s Comprehensive Plan in compliance with Statewide
Planning Goal 8.
Public Facilities and Services Plan Update
The Eugene-Springfield Area Public Facilities and Services Plan (PFSP) is a plan required by
Statewide Planning Goal 11 to plan for public facility needs in the Eugene-Springfield
metropolitan area. The City of Eugene is identifying necessary amendments to the PFSP to
establish urban reserves. Both jurisdictions previously established urban reserves that are no
longer in place. However, the PFSP continues to include references to those formerly
designated areas, and these need to be removed to avoid confusion. These amendments will
need to be co-adopted by the Cities of Eugene and Springfield and Lane County. City staff may
take advantage of this process to identify other PFSP amendments that would benefit the City.
This project is in the scoping stage that will establish a work program and timeline.
RECOMMENDED ACTION: Receive update on the status of the planning work program.
Attachment 1, Page 6 of 6
Schedule of Springfield Comprehensive Planning Projects20212022202320242025Project, Project Manager, & Project NeedQ1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4Q1Q2Q3Q4Q1Q2Drinking Water Protection Overlay District Monica Sather addresses oversight in expansion of UGBxxxxx xxxxxSeek Funding for Franklin Blvd Monica Sather create a multi‐modal connection between Eug & Spr downtownsxxxxx xxxxxRegional Transportation Plan Emma Newman required for federal fundingxxxxx xxxxx xxxxxTransportation Scoping for Gateway Emma Newman required for development of UGB expansion areaxxxxx xxxxx xxxxxGlenwood Riverfront Stormwater Conceptual Design Molly Markarian facilitates development in Glenwoodxxxxx xxxxx xxxxxIncorporate Adopted Amendments into Neighborhood Refinement Plans Monica Sather provides accurate information to staff and publicxxxxx xxxxxParticipation in the Climate Friendly Equitable Communities Rulemaking Emma Newman provides input into the rules applicable to metropolitan citiesxxxxx xxxxx xxxxx xxxxx xxxxxUpdate Water Quality Limited Watercourse Map Monica Sather required for development of UGB expansion areaxxxxx xxxxx xxxxxWetland and Riparian Inventories/Assessments for UGB Expansion Areas Monica Sather required for development of UGB expansion areaxxxxx xxxxx xxxxx xxxxx xxxxxWetland & Riparian Mapping Update & Implementation Guidebook Monica Sather improves customer service & ensures compliance with OARsxxxxxAttachment 2, Page 1 of 2
Schedule of Springfield Comprehensive Planning Projects20212022202320242025Project, Project Manager, & Project NeedQ1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4Q1Q2Q3Q4Q1Q2Willamalane Park Planning Coordination Monica Sather coordination with Team Springfieldxxxxx xxxxx xxxxx xxxxx xxxxx ? ?Public Facilities and Services Plan Update Molly Markarian addresses current needs and removes obsolete referencesxxxxx xxxxx xxxxx xxxxx xxxxx xxxxxWastewater Master Plan Molly Markarian identifies system improvements necessary to meet growthxxxxx xxxxx xxxxx xxxxx xxxxx xxxxxMain Street Safety Project ‐ Facility Plan Molly Markarian addresses one of Oregon's most unsafe city streetsxxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxxDevelopment Code Update Mark Rust facilitates development, some residential components requiredxxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxxComprehennsive Plan Map & Housing Needs Analysis Sandy Belson required by House Bill 2003 passed in 2019xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx xxxxx
Attachment 2, Page 2 of 2