HomeMy WebLinkAboutComments PWE 8/29/2008
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MEMORANDUM
City of Soringfield
TO:'
Mark Metzger, Urban Planner
Date Received: <;12..1/61'
Planner: MM
DATE:
Aug. 28, 2008
FROM: Richard Perry, PW'Engineering
SUBJECT: ZON2008-00033, Pape Properties, 220d Ave.: Development Issues Meeting
Public Works Engineering Comments,
The subject application involves development ofa currently undeveloped parcel of property located
in the Glenwood area. The applicant has submitted plans to discuss the associated development and
any issues that may arise.
Applicant's Questions:
1. Planning related question.
2. Transportation related question.
3. Transportation related question.
4. Based on tbe recent stormwater study what, if any"public stormwater systems would
be required by this development with approximately 340,000 total square feet of'
impervious surface and a resulting 25-year peak dis,charge rate of 10.4 CFS? Several
city staff members recall a manhole or storm sewer line in or near the fIll area on the
western portion of the site that may serve the stormwater needs from the westlEugene
side of 1-5. Are there 1-5 as built records or indications from ODOT or Eugene for this
possibility? '
The recent stormwater study was just received Tuesday and is only in the draft form. It
shows flooding issues and drainage problems within the subject area and throughout
Glenwood. Currently, the subject area is at the top of the list for recommended
improvements but, as to when these improvements will take place, there is no certainty. For
the development to proceed, a private stormwater study will need to be conducted to
determine how best to handle the predicted flows. If allowed to discharge into the city
system, there will have to be documentation that demonstrates the system has capacity.
The existing, drainage system comes from under 1-5 and drains into the Glenwood area.
There is no system that we have knowledge of that drains into the Eugene system from the
North side ofI-5. To view the mentioned as-built records, the client should solicit the City
ofEug~ne or ODOT directly.
,5. Transportation related question.
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5. As the City assumes responsibility for st.reet lighting in Glenwood, elimination of
'safety hazards caused by inadequate lighting of,intersections shall be a priority.
5.1 ,The City should consult with the State Highway Division to improve street lighting
at the intersection of Glenwood Boulevard and 22nd Avenue and the 1-5 pn and
off ramps.
5.2 The City should consult with the Glenwood Water District to review other street
lighting needs in Glenwood.
5.3 '. As Glenw06d is ann'exed to Springfield, other appropriate intersections should be
added to th.e pity's streetlight list. .'
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Discussion: Adequate'street lighting is an important safety feature of intersections. Two
intersections in Glenwood have be~n noted,as having inadequate lighting: the intersection of
Glenwood Boulevard and 22nd Avenue and the 1-5 on and off ramps. Elimination of these'
hazards wi!1 require coordination with the State Highway Division. '
6. . : Encourage Lane Transit District to continue to provide convenient transit service to
Glenwood.
Discussion: L TD currently provides transit service along two routes in Glenwood. Location .of
the new L TD facility in GlenVl/ood will provide the Community with an opportunity to work with
L TD on incre'asedservice. ' . , ' , .
7. Recognize and promote the availability of rail service to industrial properties as an
asset in Glenwood.
Discussion: Glenwood has particularly good rail access because two major rail lines run
. through the area. This,should be promoted as an asset for the future development of industrial
property in the Glenwood area. " ,
Glenwood has as many as 20 to 30 trains per day passing through ,the area in a 24-hour, period.
The Union Pacific Main, Line carries rail traffic through the area from Los Angeles to Seattle,
while the Siskiyou Line carries traffic between the metropolitan area and cities in southern
Oregon. The Major Transportation Map on Page 48 illustrates the Glenwood area's location
aIOrig-the~e,m~in,transportation.corridors.~
~P;ASE I TRANSPORTATION ELEM~
, A. BACKGROUND -,- ,
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Transportation facilities serving the Phase I area provide access to both residential and ,.t.,
industrial properties. Access arid circulation are complicated by the fact that 1-5 forms, the area's
southern boundary, while Union Pacific Railroad's Ashland line forms its northern boundary. As
a result, access to and from the area has been limited to minimize intersections with 1-5 and
across the Union. Pacific tracks.
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Historically', primary access to the area was provided from Franklin Boulevard via Henderson
Avenue. In 1979-80, Glenwood Boulevard was constructed betWeen Franklin Boulevard on the
north and 1-5 on the south. As part of that same project, 22ndAvenue was constructed west of
Henderson asa connector to GlenlNood Boulevard. It was built to serve as a collector street for
the largely developed industrial area west of Henderson. Finally,'in 1980, the'railroad crossing
at ~endf?rson Avenue was closed, ending Henderson's function as a major access way into the,
area, and leaving the 22nd Avenue collector and Glenwood Boulevard as the only access to the
Phase I area.
At the .present time, there are no fully improved streets (streets with curbs, gutters, and
sidewalks) within the Phase I area'of Glenwood. The 22nd Avenue c'ollector west of Henderson
is improved with two 11-foot travel lanes on asphalt mat and four-foot paved shoulders.
Henderson Avenue is a Lane County-maintained street with less than a 40-foot right-of-way and
an asphalt surface' in fair to poor condiiion. Other sireets like 21st and22nd Avenue's east of
Henderson remain gravel streets with less than a 40-foot right-of-way. At the present time, the
gravel portion of 22nd Avenue provides the only access to 14 acres of vacant land east of
Henderson. Still other streets, like Harrison (also known ,,!S Seneca), exist on paper as
dedicated rights-of-way and have never been developed for access (See the Street.Conditions
Map, Page 57). ' ,
Access remains a critical issue, at the present time, particularly in areas east of Henderson
Avenue, where the gravel portion of 22nd Avenue provides access to a number of houses and
also provides the only dedicated access to vacant, industrially-designated property. While
bisecting part of the Farwest Steel development site, 21st Avenue also provides. access to nine
residences and a church.
As mentioned above, the only access point into the Phase I area is from 22nd Avenue. This
limits the ability of emergency vehicles, such as fire trucks and ambulances, to get into the area
if 22nd Avenue were to be blocked. ' "
There are currently no developed pedestrian or bicycle ways within the Phase I area or
connecting the Phase I area to the rest of Glenwood. Although 22nd Avenue, west of
Henderson, has four-foot shoulders on either side, these are inadequate for pedestrian and
bicycle travel given the nature of industrial traffic on 22nd Avenue and the steeply sloping sides
of the fill immediately'next to the street shoulders. " ,
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B. TRANSPORTATION GOALS
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It is understood that not all of the transportation goals stated below can be met fully or at the
same time. The goals can be prioritized and balanced against each other in order to achieve the
transportation needs, for the Phase I' area. These goals are not listed in order of priority.
sP' As the area makes a transition to a fully developed industrial area, to design aCCeSS to
industrial development that minimizes impacts on e~isting residential property. I
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Date Received:
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GLENWOOD REFINEMENT PLAN -- PHASE 1
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ROAD CONDITIONS
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To provide development standards and processes that will improve access to industrial
property .
To provide safe and efficient access into the area for emergency vehicles.
To provide safe and efficient access into the area for pedestrian-bicycle traffic.
POLICIES
These policies help guide decisions in providing for adequate transportation access and
circulation in the Phase I area.
Recognize residential and industrial land use patterns and implement a short-range
transportation strategy that responds to those patterns.
Recognize ultimate development of the area for industrial uses and implement it
long-range transportation strategy as'resid~ntial uses phase out of the area.
Provide short~range access and improvements to the area at minimal cost 'and in
the most efficient manner possible. ,. . ' . "
;4. 'Provide for an efficient and workable 'transition between short and long-range
:J transportation strategies recognizing the short-term transportation needs of
existing residential and industrial development and the long-term transportation
needs offuture industrial development.
Discussion: Transportation strategies for the Phase I area need to addre,ss existing residential
and industrial land use patterns as well as future plans for industrial development. These
. policies provide direction for more specific streetimprovement projects to address residential
and industrial land use patterns in the short term and ultimate industrial development in the long
term. The Short and Long-Range Transportation Strategies identify how to implement the
transportation goals and polic;:ies through specific street improvement projects.
The Short-Range Transportation Strategy allows vacant industrial land to develop while
minimizing, as ,much as possible, the physical and financial impacts of street improvements on
existing residential development. This strategy also minimizes costs of interim street
improvements to developers of industrial property. The 'proposed Long-Range Transportation
Strategy reflects anticipated transportation needs of future industrial development and would
only take full effect when residential development has phased out of the area. To provide a I
transition between the short and long-range strategies, street improvement projects will need to
be carried out in a manner that provides access to developable land while continuing to protect
adjacent residential properties from industrial impacts.
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5. The City shall require developers of vacant industrial property to provide a
minimum level of street improvement before developl'!1ent can occur. '
Discussion:The minimum level of improvement needed for industrial development is '
described in the Short-Range Transportation Strategy. This minimum level of improvement is
neede9 to provide reasonably safe and efficient access as part qf the Short-Range
Transportatipn Strategy.for the area.aJ:1e~City"wiILnot.assess:adJacent.proper:ty_ownersJorJessf
than;a.Gity.standard.street.improveme.!:lt:jjlitieJeJ?PonsibililY-.f6f~providinp.those'street0
t;:improyeinents'will'fall uf:tQrlJhose'Rrof:fetlY.JlYt.lJ.ers'wb:9:ii)itiate.ttie,impLoyements.i
6. The City shall not initiate street improvements on streets providing frontage to
, residentially developed properties.
Discussion: Residential property owners have expressed concern about being assessed for
street improVements needed for industrial development. Thus7industri~t1'developmenEon.stre!lts
lprovidi,ng'access.to:<OIdjap~!}t.~~~t[aIR'roperties~that'reou~r~s-;<5tr.eet.impr~vem:ents'must--y
, tlmRrbve.a.2/3.streetf-A.2/3.street )nclu,qe\l.:!l.l"least one.traveUane.ln.each.dlrectlon,ana"curb~
(gUtter ana'Sidewalk'ontreindustrial:side:of,the stre~t. ~treet improvements can still be initiated
on petition of a majority of property'owners'15enefitea or on the motion of the Council, as
provided in th,e Springfield Charter, Section 77. ..
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7. ,The Long-Range Transportation Strategy for the area shall provide a basis for
, considering vacation of existing street rights-of-way to facilitate consolidation of
, parcels for industrial development.
Discussion: The Long-Range Transportation Strategy will not be fully implemented until
residential development has phased out of the area. This provides assurances for residents and
residential property owners that existing street patterns will be retained where they provide
acce~s to residential property. It also provides assurances to owners of industrial property that
, the City will not require full improvement of existing streets not needed for future industrial
development and that eventually parcels under their development control could be
consolidated. This policy also allows for development of ,fully improved streets in portions of the
area while residential development continues to exist in other parts of the Phase I area.
8. ,The City shall consult with appropriatl!! agencies and affected property owners to
establish a'secondary'emerQency'vehicle-accesslinto the Phase I area.
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Discussion: Emergency service providers from both cities have raised concerns about their
ability to respond to emergencies inthe area if the 22nd Avenue collector be~omes blocked.
The need fora secondary emergency access increases as the area'develops more intensively.
Finqing viable alternate access routes is difficult because of the limited access into the area in
generaL The following access points have been identified as possible'alternate access routes
(See the Secondary Emergency Access Map, Page 61).
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a. From Henderson, across the Union Pacific railroad tracks.
This route is considered by the emergency service providers as the most desirable secondary
emergency access into the area. This alternative would require gates and/or bollards on both
sides of the tracks. The surface over the tracks would need to be improved enough to support
tl:1e weight of a fire truck (80,000 pounds). This alternative would require the successful '
- >( ,. , ," 'negoiiati<;m <?f,~ I!mit;~ ,u~e crossing between the City and Union Pacific. . 1/114/ ,..-;
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If this section of Henderson were vacated, a 20-foot fire lane easement would have to be
retained (Note: Following adoption of the Phase I plan, the Eugene City Council approved the
vacation of this portion of Henderson, making this implementation strategy unlikely to occur).
b. From 22nd, through the Pape development to the south end of Henderson Avenue.
This route would require an access pOintoff,of 22nd Avenue into the property and'the
establishment of a fire lane easement through the Pape development to the unvacated portion
of Henderson Avenue.' ,
c. From Glenwood Boulevard, through the Pape development to the south end of
Henderson Avenue.
This route is, similar to 8., excElPt.that the access point would be off of Glenwood Boulevard
rather than 22nd Avenue. Before this could be a viable access, the Jill on, the.Pape property
would have to be extended to Glenwood Boulevard. This alternative would 'also require a'fire
lane easement through the'Rape development. "
d. From Interstate 5, through the Vik property to the east end of 22nd Avenue.
This route would require an emergency access' point off ofthe northbound lane on Interstate 5
where 1-5 is level with the Vik property. This'route would require a'fire lane easement through
the Vik property to the east end of 22nd Avenue. Development of this route would require both
State highway and Federal approval.
Alternative 'a. should be considered the top priority for secondary emergency access since it is
the most preferred by the emergency access providers and seems to be logistically the easiest
and least expensive to provide. If development of 6mergencyaccess in that location is riot
possible, implementation of another alternative should be pursued. '
If 22ndAvenue is ever extended east to Newman or the McVay Highway, secondary
emergency access will no longer be needed.
9. In conjunction with Tr1'nsPlan and adjacent landowners, the City shall pursue
development of 22nd Avenue west of Henderson asa'fully improved street,
including pedestrian/bicycle facilities.
Discussion: That portion of 22nd Avenue west of Henderson was built in 1980 by Lane County
and was not constructed to Eugene street standards. As more industrial development occurs,
this,street will need to be upgraded. Future improvements to this street should also address the
lack ofadequatepedest~ian and bicycle access into the Phase I area. "
Regardless of future land use patterns in the area, access for pedestrian and bicycle traffic
needs to be improved. Because oftopography and industrial traffic, the pedestrian-bicycle
facilities will need to be separated from vehicular traffic 'on 22nd Avenue by curbs or other
barriers.
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SECONDARY EMERGENCY ACCESS
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ALTERNATIVES
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10., The appropriate governmental agencies shall seek to improve pedestrian-bicycle
access into the neighborhood, with particular attention to use of the Hend~rson rail
crossing. ,
Discussion: Pedestrian-bicycle access into the Phase larea is currently inadequate. Adequate
pedestrian-bicycle access is important to current residents as well as employees of future
industrial development. Pedestrian-bicycle access should be considered a priority. This policy
does not imply any future reopening of Henderson Avenue, but does call for investigation into
the use of the existing right-of-way for a pedestrian-bicycle crossing or research into the
feasibility of a separated grade pedestrian-bicycle crossing.
, ~TRANSPORTATION STRATEGIES,
, The gradual transition of residential to industrial uses and traffic in the Phase I area nepessitate
two transportation strategies to reflect that transition. The Short-Range Transportation Strategy
addresses interim improvements allowed for industrial development using existing,
rights-of-way. The Long-Range Strategy addresses the ultimate street development in the area,
including street vacations and new street development.
1. 'The City shall use the Short and Long-Range Transportation Strategies as a guide for
evaluating specific development proposals in the area.
l1.a..::.:.....:...Sh~ort;:Range::Transpprtation~Strategy.:, :;;;;
The Short-Range Transportation Strategy identifies the conditions and issues to be addressed
by short-range transportation improvements (See the Short-Range Transportation Strategy
. Map, Page 64). '
@) Intersection at 22nd and Henderson Avenues
Currently, the alignment of the intersection of 22nd and Henderson avenues is offset. 22nd
Avenuewest of Henderson intersects Henderson at a point approximately 100 feet north of the
portion of 22nd Avenue east of Henderson Avenue.18efp:enaing.6h:.wtietner~tne.interse,ctioID
reiW9nment:.at:flllnderson:and'22nd'~ye.~~.~w::curs:on.the:east:or.:.west:side:otHenderson~Jh.e
cfealigrime-ritrtbuld:imp~act:the:nouse.on.the'northeast.comer.an~d:possibly:the'housE3.next-to'lt~
@> 22nd Avenue East of Henderson Avenue
22nd Avenue east of Henderson has been identified as the street best able to provide access to
vacant industrial sites. 1ffii~tre,e.t'will'need'to'be~irriRroved.to'Rro_viae.access"for'industrial
ItraffiC:-Dev~IQoment-6f_vacanrir:H:t~~I:grQpertyc2n:!he.south,siqe.of~22nd~~venue:easjlof
Itlarrison-Str,e'et.will:require:streefimprovements.fo;:the~soutli:si.de.:.ot;22na~Avenue.wnereb
fabUtsJhe'vacant'in~us!ri~I'site;::as-:aiscussed:in_#6:on:P-ag~5~::> '
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22nd Avenue would terminate in a cul-de-sac on the Vik properly. The cul-de"sac would be built
when the Vik property is developed, although interim turnaround measures may be required
prior to that time. '
(3) 21st Avenue
21st Avenue east of Harrison would retain its existing level of improvement. Because of existing
hazardous conditions, a minimum level of intersection improvements' at the intersection of 21st'
and Henderson avenues would be required. The section of 21st Avenue between Henderson'
and Harrison would also be paved. 21st Avenue may eventually be vacated as pal\ of the'
Long-Range Transportation Strategy.
There will also need to be an emergency turnaround at the east end of 21 st Avenue. This
turnaround would be constructed as part of the development on the Vikpr9perty. '
b. Long-Range Transportation Strategy:
T~e Long-Range Transporiation,Strategy will develop as residential uses phase out of the area.
It needs toaddress the following issues and. conditions:
(1) City standards for industrial areas require fully improved streets including curbs, gutters,
sidewalks and paving:
(2) Ultimate street patterns included as part of the Long-Range Transportation Strategy will
depend upon property ownership and the nature of industrial development.
The Long-Range Transportation Strategy will provide for a fully improved street on 22nd ,
Avenue. Some flexibility for future improvements t021 st Avenue east of Harrison Street and for
the improvement of Harrison Street between 21 st and 22nd Avenues will be needed. The final
street pattern will depend on how parcels are consolidated and developed. For example, under
this plan, the streets that now bisect the Fischer properly (21 st and Henderson Avenues) could
be vacated. If 21 st Avenue between Henderson and Harrison is vacated to facilitate
'consolidation of industrial development sites, improvements to Harrison Street between 21 st
and 22nd avenues may be' considered.
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Prior to approving'any,vacatiorn'f i1'st Avenue between He'nderson and Harrison streets, the
City Council should consider whether the public interest is met by the vacation proposal. This
should include consideration of the concerns of residents and properly owners who use 21st
Avenue for access. In addition, consideration should be given to the impact on adjacent
properties if Harrison Street between 21 st and 22nd avenues is to be developed as an
alternative access. ' ,
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GLENWOOD REFINEMENT PLAN -- PHASE 1
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SHORT RANGE TRANSPORTATION STRATEGY
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Eventually, 22nd Avenue may be extended through the Vik and Nielsen properties to connect
witli either Newman Street or franklin Boulevard. This would open up additional land for
development. Because of the steepness of terrain east of the Phase I area, this street extension
would be expensive to construct. Currently, neither the City or Lane County has funds available
to construct such a street and it may only be constructed in the event of initiation and financing
by adjoining property owners. Because this proposal impacts land and transportation circulation
in the Phase II area, it should be considered more thoroughly du'ring the development of the
Phase II part of the plan. "
Under the Long-Range Transportation Strategy,the Phase I, area would eventually be served
by fully improved streets. '
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(NOTE: The Appendix dated April ,1989 contains a.more complete record of extensive
discussions during preparC!tion of the draft plan on the subject of street vacations):
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