HomeMy WebLinkAboutApplication APPLICANT 9/1/2011
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:City or Springfield
Development Services Department
225 Fifth Street
Springfield, OR 97477
Amendment of Refinement Plan Text and/or Oi
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A licant Name:
Phone:
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Address: J6 Ay:J.1..Jtrv2..ef-.
A licant's Re
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Address:
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Owner:
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TAX LOT NO S
ASSESSOR'S MAP NO:
Address:
~ Refinement Plan Desi nation:SeeaH-zvt-..ul
;:;. ~ 1-. 22> Acres
Description of
Proposed
Amendment:
Refinement Plan
to be Amended:
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Associated A lications:
Si ns:
Case No.: Date:
Reviewed b
A lication Fee: $
Technical Fee: $
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Posta e Fee: $
TOTAL FEES:
PROJECT NUMBER: PRSII-OOOI
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aV'D For DLCD Use Only
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DLCD Notice of Pro -posed Amendment
Post Acknowledgment Plan Amendments
Urban Growth Boundary
Urban Reserve Area
TillS COMPLETED FORM, including the text of the amendment and any supplemental information, must be received at DLCD's
Salem office at least 45 DAYS PRIOR TO THE FIRST EVIDENTIARY HEARING ORS 197.610, OAR 660-018-000
Jurisdiction: City of Springfield/Lane County
Local File Number: LRP 2008-00017/PA 11-5489
Is this a REVISION to a previously submitted proposal?
[gJ Comprehensive Plan Text Amendment(s)
~ Land Use Regulation Amendment(s)
o Transportation System Plan Amendment(s)
o Other (please describe):
Date of First Evidentiary Hearing: 10/18/2011
Date of Final Hearing: 12/05/2011
~ No 0 Yes Original submittal date:
~ Comprehensive Plan Map Amendment(s)
~ Zoning Map Amendment(s)
o Urban Growth Boundary Amendment(s)
o Urban Reserve Area Amendment(s)
Briefly Summarize Proposal in plain language IN TillS SPACE (maximum 500 characters):
Adoption of: the updated Glenwood Refinement Plan (GRP) for the Glenwood Riverfront area; Metro Plan Mixed Use
and Nodal Development Area plan designations; GRP Residential, Commercial, Office and Employment Mixed-Use plan
designations; GRP Residential, Commercial, Office and Employment Mixed-Use zoning districts; the updated Glenwood
Riverfront Mixed-Use Plan District (Springfield Development Code amendment); and additional Springfield
Development Code amendments.
Has sufficient information been included to advise DLCD of the effect of proposal?
Are Map changes included: minimum 8Y:z"x11" color maps of Current and Proposed designations. .
Plan map. change from: various To: various
Zone map change from:various To: various
Location of property (Site address and TRS): various
Previous density range:various New density range: 50 dulnet acre
Applicable statewide planning goals:
'1 2. 3 4 5 6
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~y es, text is included
~ Yes, Maps included
Acres involved: 33.26
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Is an exception to a statewide planning goal proposed? 0 YES [gJ NO Goal(s):
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Affected state or federal agencies, local governments or special districts (It is jurisdiction's responsibility to notify these agencies.
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ODO, DLCD, Lane County, Springfield' Utility Board, the Willamalane Parks and Recreation District, Lane Transit
District and the Glenwood Water District.
Local Contact person (name and title):
Phone: 541-726-3777
Address: 225 Fifth Street
Fax NUlpber: 541-726-3689
Gary M. Karp, Senior Planner
: Extension:
City: Springfield Zip: 97477-
E-mail Address: gkarp@Springfield-or.gov
- FOR DLCD internal use onlv-
DLCD file No
Date Recelved:~
Planner: MEM
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SUBMITTAL INSTRUCTIONS
TIllS COMPLETED FORM, including the text of the amendment and any supplemental information, must be received at DLCD s
Salem office at least 45 DAYS PRIOR TO THE FIRST EVIDENTIARY HEARING. ORS 197.610, OAR 660-018-000
1. This Form I must be submitted by a local jurisdiction. Individuals and organizations may not submit
a comprehensive plan amendment for review or acknowledgment.
2. When submitting a plan amendment proposal, please print a completed copy of Form 1 on light
green paper if available.
3. Text: Submittal of a proposed amendment to the text of a comprehensive plan or land use regulation
must include the text of the amendment and any other information necessary to advise DLCD of the
effect of the proposal. "Text" means the spet:ific language proposed to be amended, added to or
deleted from the currently acknowledged plan or land use regulation. A general description of the
proposal is not adequate. Please submit Form 1 with ALL supporting documentation.
4. Maps: Submittal of a proposed map amendment must also include a map of the affected area
showing existing and proposed plan and zone designations. The map must be legible, in color if
applicable and printed on paper no smaller than 8Yz x II inches. Please provide the specific location
of property: include the site addressees) and Township/Range/Section/tax lot number. Include text
regarding background, justification for the change, and the application if there was one accepted by
the local government. .
5. Exceptions: Submittal of proposed amendments that involve a goal exception must include the
proposed language of the exception.
6. Unless exempt by ORS 197.610(2). proposed amendments must be received at the DLCD's Salem
office at least 45-days before the first evidentiary hearing on the proposal. The clock begins on the
day DLCD Receives your proposal in the Salem Office. The first evidentiary hearing is typically the
first public hearing held by the jurisdiction's planning commission on the proposal.
7. Submit one paper copy of the proposed amendment including the text of the amendment and any
supplemental information and maps (for maps see # 4 above).
8. Please mail the proposed amendment packet to:
ATTENTION: PLAN AMENDMENT SPECIALIST
DEPARTMENT OF LAND CONSERVATION AND DEVELOPMENT
635 CAPITOL STREET NE, SUITE 150
SALEM, OREGON 97301-2540
. 9. Need More Copies? Please print forms on 8Yz xlI green paper if available. If you have any questions or
would like assistance, please contact your DLCD regional representative or contact the DLCD Salem Office
at (503) 373-0050 x238 or e-mail Dlan.amendments(@.state.or.us.
http://www .oregon .gov /leD/forms.shtm I
Updated April 22, 2011
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DATE: September 1, 2011.
TO: Larry French, Plai:1 Amendment Program Specialist
FROM: Gregory Mott, Planning Manager, City of Springfield
Kent Howe, Planning Director, Lane County
SUBJECT: Proposed Amendment of the Glenwood Refinement Plan (GRP):
Co-adopt: Glenwood Phase I Refmement Plan amendments, both text and diagranis, for the
Glenwood Riverfront; Metro Plan designation amendments from Low Density Residential,
Medium Density ResidentialJMixed-Use, Medium Density ResidentiallMixed-UseINodal,
Commercial, CommercialJMixed-Use, CommercialJMixed-UseINodal, Light-Medium Industrial,
Light Medium IndustriallMixed-UselNodal, and Public and Semi-Public to Mixed-Use and
Mixed-UselNodal; Glenwood Refinement Plan designation amendments from Low Density
Residential, Commercial, Light Medium Industrial, CommerciallIndustrial Mixed-Use,
CommerciallIndustria1/Multi-Family Residential Mixed-Use, Mixed-Use, Parks and Open Space
to Residential Mixed-Use, Commercial Mixed-Use, Office Mixed-Use and Employment Mixed-
Use; Glenwood Refinement Plan zoning map amendments from Low Density Residential,
-----:--------MedifiJtl.Denslty Resideiitial,CoiJJ.riiUJJ.i.tyCommereiaI; General Office; Light Medium Industrial'
and Parks and Open Space to Residential Mixed-Use, Commercial Mixed-Use, Office Mixed-Use
and Employment Mixed-Use; Springfield Development Code amendments from the Glenwood
Riverfront Plan District to the Glenwood Riverfront Mixed-Use Plan District (ref. SDC Sections
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3.4-100-280; Sections 4.3-110 Stormwater Management, 4.3-115 Water Quality Protection, 5.6-
105-115 regarding Plan Districts, imd 6.1-110 Defmitions - all directly related to the above
proposed Glenwood Phase 1 amendments; and Table 5.4-1 and Section 5.12-160 regarding
Major and Minor Replats -- as housekeeping amendments. All amendments supplement and
support the existing policies and provisions of the Eugene-Springfield Metropolitan Area
General Plan.
Local File No. of Initiating Jurisdiction: Through August 31, 2011: LRP 2008-00017
Starting September 1, 20 II:
. 1'1 (>;f II -CXXJ65) TV!)f II-ODDo(p/ 7LfI'ill-OOOD'tJ
T"/f 311 - c;oro I
Local File No. of Co-Applicants: PAil ~5489
Date Recelved:~
Planner: tIIIEM
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Dear Mr. French:
As you know, Eugene, Springfield and Lane County co-adopted the Eugene-Springfield Metropolitan
Area General Plan (Metro Plan) in 1982 as this metropolitan area's comprehensive land use plan."
What you may not know is that certain provisions of the Metro Plan require all three jurisdictions to
co-adopt amendments; other provisions require one of the two cities and the county to co-adopt
amendments; and yet other provisions require only a single jurisdiction to adopt an amendment. To
lessen the confusion that such an arrangement might cause for your agency, the planning directors of
Eugene, Springfield and Lane County will from this point forward submit a letter confirming our
participation, as appropriate, with each notice of proposed amendment. On behalf of the City of
Springfield and Lane County, this letter serves as confirmation that these two jurisdictions are co-
applicants for the above referenced post-acknowledgment plan amendment proposal. If you have any
questions regarding this matter please contact either, of us at your convenience.
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( C r4ially,
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Gr' "Mott
PlanIDng Manager, City of Springfield
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Kent Howe
Planning Director, Lane Coimty.
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G:enwood Back~round
. In 1998, Springfield assumed jurisdiction of the 640 acre area known as Glenwood from Eugene. At that
time, Springfield adopted the Glenwood Refinement Plan with no policy changes.
. In 200S, Springfield adopted an amendment to Subarea 8, the River Opportunity Area of the Glenwood
Refinement Plan, a 48 acre mixed use residential/commercial area between Franklin Boulevard and the
Willamette River extending front the Ponderosa Mobile Home Park to a point just south of the Union
Pacific Railroad trestle. To date no development/redevelopment has occurred in Subarea 8.
. In 2008, the Springfield Council initiated the Glenwood Refinement Plan Update project to be
completed in phases:
o Glenwood Phase 1 (267.28 acres) is the area along the Willamette River on both sides ofthe Franklin
Boulevard (the Franklin Riverfront) and McVay Highway (the McVay Riverfront).
o Glenwood Phase 2 (372.72 acres) is the remaining inljustrial area, south of Franklin Boulevard and on
both sides of Gle'nwood Boulevard; and the residential core south of Franklin Boulevard. The initiation
of Phase 2 will occur after the adoption of Phase 1 by the Springfield City Council and Lane County
Board of Commissioners.
Glenwood Phase 1 PurDose
The purpose of Glenwood Phase 1 is to:
. Facilitate the development of a vibrant, pedestrian friendly, higher density residential mixed use
, neighborhood inclusive of ground floor commercial, with nearby mixed use office and commercial
opportunities along Franklin Boulevard;
. Preserve large lot mixed use employment development sites and facilitate mixed use employment
opportunities along McVay Highway;
. Establish development standards, urban design regulations and natural resource protection for the
proposed mixed use development; and
. Adopt the proposed amendments listed below that will fulfill the purpose of Phase 1.
Applicants: - Case Numbers:
City of Springfield 1 LRP 2008-00017
Lane County 2T'JPli\\ -00005
3 T"/f'"II - OCO<l '"
4 T'f1'1j 11-0000 't-
5 i'je ~1I-o"'o'1.
6 PA 11-5489
Applications: This is a consolidated staff report for:
1. Amendments to the Metro Plan diagram; Legislative Type IV
Review
Existing and Proposed Metro Plan Designations Ref. Springfield
Acres Development Code
Metro Plan Designation Existing Proposed Section 5.14-100
Low Density Residential 16.96 0.00
Medium Density Residential/Mixed-Use 24.30 0.00
Medium Density Residential/Mixed-Use / Nodal 5.98 0.00
Date Racel"ed:~
Planner: MEM
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Commercial 3.85 0.00
Commercial/Mixed-Use S 1.42 0.00
Commercial/Mixed-Use / Nodal 4.54 0.00
Light Medium Industrial 87.73 0.00
Light Medium Industrial/Mixed-Use / Nodal 38.11 0.00
Mixed-Use 0.00 147.68
Mixed-Use / Nodal 0.00 119.60
Public and Semi-Public 34.39 0.00
Total 267.28 267.28
2. Amendment to the Glenwood Refinement PI;," including text; Legislative Type 1\
Review Ref.
Existing and Proposed Refinement Plan Designations Springfield
Acres Development Code
Refinement Plan Designation Existing Proposed Section 5.6-100 -
Low Density Residential 16.96 0.00
Commercial 2.67 0.00
Light Medium Industrial 87.73 0.00
Commercialjlndustrial Mixed-Use 44.38 0.00
CommercialjlndustrialjMulti-Family Residential Mixed-Use 32.S2 0.00
Mixed-Use 48.62 0.00
Parks and Open Space 34.39 0.00
Residential Mixed-Use 0.00 33.26
Commercial Mixed-Use 0.00 14.58
Office Mixed-Use 0.00 46.33
Employment Mixed-Use 0.00 173.11
Total 267.28 267.28
3. Zoning Map.Amendments; and Quasi-Judicial Typ
, ,." III Review
- -Existing'-and Proposed Zoning Districts Raised to
-. -. Acres Legislative Type IV
Zoning District Existing Proposed Review Ref.
Low Density Residential 41.28 0.00 Springfield
Development Code
Medium Density Residential 7.04 0.00 Section 5.22-100
Community Commercial 49.50 0.00
General Office S.97 0.00
Light Medium Industrial 13S.SS 0.00
Parks and Open Space 27.96 0.00
Residential Mixed-Use 0.00 33.26
Commercial Mixed-Use 0.00 14.58
Office Mixed-Use 0.00 46.33
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Employment Mixed-Use
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Total 267.28
173.11
267.28
4. Several Springfield Development Code Amendments to Sections: 3.4-100-280; 4:3-110;
Table 5.4-1; 5.6-100-160; and 6.1-110
Legislative Type IV
Review Ref.
Springfield
Development Code
Section 5.6-100
Date Rece\l/ed:-1~
Planner: ME.M
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Date Received:~
Planner: MEM
Phase 1: Current
Plan Designations
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Date Receive .
Planner: MEM
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Phase 1: Proposed Zoning
and Plan Designations
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Date Received:~
Planner: MEM
Phase 1: Metro Plan
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Date Received:~
Planner: MEM
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Acknowledgements
City Manager
Gino Grimaldi
Mavor
Christine Lundberg
Citv Council
Sheri Moore
Joe Pishioneri
Dave Ralston
Sean VanGordon
Marilee Woodrow
Hillary Wylie
Planning Commission
Denise Bean
Bob Brew
Frank Cross
Greg James
Johnny Kirschenmann
Steve Moe
Stacy Salladay
Proiect Core Team
Courtney Griesel
Mike Engelmann
Gary Karp
Kristi Krueger
Molly Markarian
Clayton McEachern
George Walker
Sunny Washburn
Technical Advisorv Committee
Barb Bellamy, 4J School District
Dave Carvo, Glenwood Water District
Jeff DeFranco, Springfield Public Schools
Greg Ferschweiler, Public Works Maintenance
AI Gerard, Fire and Life Safety
Mike Harman, Police
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David Helton, ODOT
Greg Hyde, Willamalane
Bart McKee, SUB Water
Lydia McKinney, Lane County Transportation
Brock Nelson, Union Pacific Railroad
Mark Rust, Lane County Land Development
Tony Talbott, SUB Electric
John Tamulonis, City Manager's Office
Jeff Ziller, ODFW
Citizen Advisory Committee
Joany Armstead, Glenwood Resident
Susan Ban, Affordable Housing Advocate
Erik Bishoff, Designer/Developer
Mike Eyster, General Public
Dan Hill, Designer/Developer
Randy Hledik, Glenwood Business Owner/Property Owner
Chris Kehoe, General Public
Dave Marra, Realtor/Lender
Deveron Musgrave, Glenwood Employee
John Oldham, Glenwood Business Owner/Property Owner
Zack Pardo, Glenwood Resident
Jim Peterson, Glenwood Resident
Steve Ramseur, Glenwood Resident
Olivia Reynoso, Glenwood Employee
Steve Roth, Glenwood Business Owner/Property Owner
Ken Schmidt, Realtor/Lender
Bill Seider, Chamber of Commerce
Roxi Thoren, Designer/Developer
Tim Vohs, General Public
The following people also served on the CAC, but were unable to finish their terms:
Laurie Adams, Realtor/Lender
Tracy Kribbs, General Public
Eric Howard, Glenwood Employee
Brian McBeth, Designer/Developer
Barbara Mulligan, Glenwood Resident
Kara Smith, Glenwood Resident
Bill Woods, Glenwood Employee
Consultants
Crandall Arambula
,-
Date Received:..:! f I J 1 r
Planner: MEM
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Pacific Habitats, Inc.
Lane Council of Governments
OBEC Consulting Engineers
Special thanks to Elizabeth Schmidt, who worked as an Intern with the Springfield Planning Division
during Summer 2010 and Spring 2011, for the sketches that accompany the text of this Plan and for her
assistance in the final Plan layout.
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Table of Contents
Introduction
Community Vision
Land Use & Built Form
Transportation
Open Space
Housing & Economic Development
Public Facilities & Services
Financing Public Facilities
Urban Transition & Annexation
Historic & Cultural Resources
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Date ReceIVed:~
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Introduction
Plan Purpose & Relationship to Other Plans
The Eugene-Springfield Metropolitan Area General Plan (Metro Plan) is the overarching land use policy
document that guides all land use decision making in Springfield, Eugene, and lane County. Following
the passage of House Bill 3337 in 2007 directing Eugene and Springfield to establish separate Urban
Growth Boundaries, each city developed community-specific refinement plans to provide more specific
application of Metro Plan policies and to provide site-specific determination of Metro Plan land use
designations.
The Glenwood Refinement Plan (GRP) is one of several neighborhood-specific refinement plans that
further refine and augment the Metro Plan and the community-specific refinement plans. They provide
the opportunity to examine, in greater detail, neighborhood specific geographic area's future housing
and economic development opportunities; open space, cultural resource protection, public facilities,
and transportation needs; and to resolve potential conflicts between adjoining land uses. The GRP is
thus intended to provide background information and policy direction for public and private decisions
affecting the growth and development of the Glenwood area. The GRP guides the provision of public
services; serves as a basis for evaluating private development proposals; and provides a common
framework for those engaged in the conservation, development, and redevelopment of Glenwood.
Implementation of GRP policies is enabled through Springfield Development Code ordinances and other
municipal rules and regulations, such as those detailed in Springfield's Engineering Design Standards and
Procedures Manual, Springfield Standard Specifications, and Springfield's Conceptual local Street Map.
Area location & Context
Glenwood is located in the southwest corner of Springfield, adjacent to Eugene. The Willamette River
bounds Glenwood on the north and east, with Interstate-5 (1-5) on the south and west. Glenwood is
approximately 684 acres (one square mile) in size and, as of the 2010 Census, was home to
approximately 1,000 residents. Glenwood is developed with a mix of residential, industrial, and
commercial land uses, and there is a large amount of undeveloped or underdeveloped land. Franklin
Boulevard, a state highway, is the primary east-west connection through Glenwood and provides the
main transportation link to Eugene and the University of Oregon to the west and downtown Springfield
to the east. The region's first bus rapid transit line, the EmX, also serves Glenwood along Franklin
Boulevard, and two rail lines traverse Glenwood. McVay Highway, a state highway, and Glenwood
Boulevard are the primary north-south connections between 1-5 and Franklin Boulevard. McVay
Highway also connects with lane Community College, and Glenwood Boulevard connects with the Moon
Mountain area of east Eugene, south of 1-5 interchange.
Glenwood Jurisdictional & Planning History
In 1982, the Metro Plan was adopted, and Eugene, Springfield, and lane County jointly conducted a
jurisdictional study to determine which city would have eventual jurisdictional responsibility for
Glenwood. In 1984, the Glenwood Jurisdictional Study, adopted by all three jurisdictions, concluded
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that Eugene should eventually annex Glenwood and provide the area with urban services. In 1985,
Eugene began a planning process for Glenwood. In 1986, the original Phase I GRP was adopted by the
Eugene City Council and Lane County Board of Commissioners; the Phase II plan was adopted in 1990.
In 1994, Glenwood residents submitted a petition requesting jurisdictional transfer to the Springfield
City Council. In 1998, a second Glenwood Jurisdictional Study was adopted by the three jurisdictions,
giving Springfield comprehensive land use jurisdiction over Glenwood. In 1999, Springfield adopted the
GRP as part of the jurisdictional transfer process. At that time, Springfield City Council directed staff to
undertake a riverfront development plan that would showcase the Willamette River and establish a
mixed-use node in an approximately 48-acre area in the northwest bend of the river in Glenwood.
In 2004, Springfield voters overwhelmingly affirmed their support for establishing Glenwood as an
Urban Renewal District. A year later, Springfield adopted an Urban Renewal Plan, outlining priorities,
development strategies, projects, and incentives for tax increment funds generated by district. Also in
200S, Springfield adopted the Glenwood Specific Area Plan and Glenwood Riverfront Plan District, for
the aforementioned 48-acre riverfront area in northwest Glenwood. In 2006, Springfield issued a
Request for Qualifications for a private partner to work with the City and the Springfield Economic
Development Agency to lead the redevelopment of the riverfront area. Springfield received several
responses. However, developers articulated that two major barriers to development of the 48-acre area
were Franklin Boulevard and uncertainty regarding surrounding land uses, and the proposed projects
were never ultimately developed. Nevertheless, the ideas proposed by the private sector served as a
basis to continue the dialogue regarding urban form in Glenwood.
In 2007, the Southwest Oregon Chapter of the American Institute of Architects hosted design workshops
that brought together design professionals, university students, and community residents in an effort to
re-envision the Franklin Corridor in Springfield and Eugene. The same year, Springfield initiated a
project to study the improvements needed along Franklin Boulevard to support redevelopment and new
investment in Glenwood. The resulting design models, endorsed by the Springfield City Council in 2008,
called for a hybrid multi-way boulevard concept supported by a series of roundabouts at major
intersections, as described in detail in the Transportation Chapter.
While momentum and consensus was building for ambitious, forward-thinking visionary projects to
revitalize Glenwood's riverfront district and major transportation corridors, existing conditions and
outdated development and annexation policies outlined in the original GRP were constraining the
likelihood that Glenwood would develop in a way that is consistent with a more modern vision for the
area held by both the community and its elected officials. In 2008, recognizing this reality, the
Springfield City Council directed staff to comprehensively update the GRP as expeditiously as possible
to:
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Implement a contemporary and forward-thinking community vision for Glenwood;
Attract and facilitate appropriate land uses which will be supported by the community;
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Date Recelved;~
Planner: MEM
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. Demonstrate the City's commitment to high quality development and thus provide certainty
and risk reduction to redevelopment interests and new market pioneers;
. Protect the City's investments in new infrastructure; and
. Provide responsible stewardship of the Willamette River corridor and Springfield's natural
resources.
Glenwood Refinement Plan Update Project
Phasing
Similar to the development of the original GRP, limited resources and the existence of greater
development pressure in certain areas of Glenwood than others, the process to update the GRP has
been divided into two phases. Phase I incorporated project initiation tasks, an inventory and analysis of
existing conditions for all of Glenwood, and visioning for all of Glenwood. In addition, Phase I included
developing plan concepts for and preparing an updated GRP applicable to land within the Phase I
boundary. As depicted in Figure 1, the Phase I adoption boundary contains all or portions of the original
plan's subareas S, 6, 7, 8, 9, and 10. Phase II will consist of developing plan concepts for and preparing
updated GRP policies for the Phase II boundary. The Phase II adoption boundary includes the rest of
Glenwood, consisting of all or portions of the original plan's subareas 1, 2, 3, 4, S, and 7. Upon adoption,
the updated GRP will only apply to land within the Phase I boundary; policies in the original GRP will
continue to apply to the Phase II boundary until the Phase II update is adopted.
For the purposes of this plan, the Phase I boundary is referred to as the Glenwood Riverfront, as
depicted in Figure 2. This area is split into the Franklin Riverfront and McVay Riverfront which, due to
their differences in location, natural features, existing ownership and development patterns, and
proximity to key infrastructure and other amenities, present distinct development and redevelopment
opportunities.
Milestones
Figure 3 depicts the project timeline and major project milestones. As noted in the figure, work on the
update project began in earnest in October 2008 with the establishment of a multi-departmental staff
team responsible for coordinating and executing the project. Referred to as the Project Core Team, this
staff team included representatives from the Development Services and Public Works Departments, and
the City Manager's Office. The Project Core Team's work was overseen by an Oversight Team,
comprised of applicable Division Managers and Department Heads.
The first step in the planning process was to inventory and analyze existing conditions and existing
policies for all of Glenwood. In 2009, staff published an Existing Conditions Report consisting of detailed
assessments of existing conditions and analyses, and conclusions resulting from the analyses on the
following topics: urban design; land use; housing; economic development; natural resources; hazards;
historic and cultural resources; transportation system; public facilities and services; and urbanization
and annexation. Springfield also hired a consultant to produce a wetlands and riparian corridor
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inventory of Glenwood, which ultimately resulted in an amendment to Springfield's Natural Resources
study in February 2011. In addition, Springfield's Historic Commission hired a consultant to conduct an
historic Reconnaissance Level Survey of potential historic resources in Glenwood, presented to staff in
October 2010.
Step two of the planning process involved staff working with the project's Citizen Advisory Committee
(described below) to articulate a vision for the physical, social, and environmental qualities that should
guide redevelopment and development in all of Glenwood for the next 20 years. This process
culminated with the development of 13 visioning goal statements, outlined under Public Involvement.
The third step of the planning process included an iterative process, facilitated by consultants and staff,
to advance concepts for land use, circulation, and open space in the Glenwood Riverfront. Ideas for the
Franklin Riverfront were developed and refined in coordination with planning efforts emerging for
downtown Springfield at the same time.
The last year of the Phase I process was spent preparing the policy and regulatory documents for the
Phase I GRP update, including drafting the chapters of the GRP and the Springfield Development Code
and Springfield Engineering Design Standards and Procedures Manual amendments necessary to enable
implementation of the plan. Items considered in developing the policy and regulatory documents
included: visioning goals; existing conditions; Federal and State regulations; buildable land needs;
research and contemporary best practices; prior City Council direction; prior planning efforts;
coordination with downtown Springfield planning efforts; consultant recommendations; and
input/feedback from agency partners and the public.
Public Involvement
In October 2008, the Springfield Planning Commission approved a Citizen Involvement Plan for the
project. The goal of the citizen involvement plan was to establish and maintain a transparent planning
process by promoting dialogue and building relationships with the community - individuals, interest
groups, corporations, and government agencies - from the beginning of the project.
To provide an opportunity for citizens to routinely communicate with staff, providing input, feedback,
and guidance to staff and elected officials throughout the duration of the project, Springfield recruited a
project Citizen Advisory Committee (CAe). In November 2008 and January 2009, the Springfield
Planning Commission, acting in its capacity as Springfield's Committee for Citizen Involvement,
appointed 20 individuals with a diverse mix of perspectives and backgrounds to serve on the CAe. The
CAC was comprised of Glenwood residents, Glenwood property owners/business owners, Glenwood
employees, members of the general public, developers, designers, realtors/lenders, a Springfield
Chamber of Commerce representative, and an affordable housing advocate. Conducted according to
operating procedures approved by the CAC in March 2009, the CAC met 18 times over the course of
Phase I.
DetE! Recelved:j I ( I It
Planner: MEM
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In addition, a Technical Advisory Committee (TAC) was selected to provide a regular sounding board for
staff regarding more technical aspects of the project and to ensure interagency and interdepartmental
coordination. The TAC consisted of representatives of Springfield departments and other public
agencies that provide public facilities or services in Glenwood, including Police, Fire and Life Safety,
Public Works Maintenance, Springfield Utility Board, Glenwood Water District, Willamalane Parks and
Recreation District, lane Transit District, Oregon Department of Transportation, lane County, and
School Districts 4J and 19.
Other citizen involvement strategies used to engage the public in the Phase I planning process included:
mailing an introductory postcard to all property owners and residents in Glenwood; establishing and
maintaining a project website and interested parties list to regularly update the public on project
progress; discussing the plan concepts with specific interest groups, such as the Intergovernmental
Housing Policy Board, Springfield Chamber of Commerce Economic Development Committee, and
Wi llama lane Parks and Recreation District Board; hosting a public open house; and holding public work
sessions and hearings with the Springfield and lane County Planning Commissions, Springfield City
Council, and lane County Board of Commissioners.
Plan Organization
The GRP is divided into the following chapters: Introduction; Community Vision; land Use and Built
Form; Transportation; Open Space; Housing and Economic Development; Public Facilities and Services;
Financing Public Infrastructure; Urban Transition and Annexation; and Housing and Cultural Resources.
The Community Vision Chapter describes the vision for the Glenwood Riverfront during the 20-year plan
period and establishes GRP goals. Each subsequent chapter includes findings in a discussion format,
along with stated objectives, policies, and implementation strategies. Also accompanying each chapter
are maps and diagrams to help describe and clarify the text.
o Goals are broad statements of philosophy that may never be completely attainable but describe
the hopes of the community and help to establish direction.
o Objectives are attainable targets that may be considered intermediate points in striving to fulfill
goals.
o Findings are comprised of factual statements resulting from research, analysis, and/or
community perceptions. Findings reflect existing conditions, or conclusions from other plans or
studies regarding existing conditions that need to be addressed, and they relate to or
substantiate policies.
o Policies provide the basis for consistent action to move the community towards its goals.
Policies are used to evaluate future actions to ensure they are consistent with the adopted plan.
o Implementation Strategies are statements to provide specifiC courses of action to attain the
policies in the plan. SpecifiC future actions will be evaluated based on their ability to effectively
implement plan policies and objectives, taking into consideration community priorities, funding
options, and legal concerns.
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Community Vision
Introduction
The Springfield City Council has placed a high priority on the redevelopment of Glenwood. The
community has confirmed and reconfirmed its support for Glenwood redevelopment through the
passage of the Glenwood Urban Renewal District ballot measure in 2004 and the adoption of the 48-
acre Glenwood Riverfront Plan District in 2005. High levels of citizen participation and enthusiasm for
subsequent planning projects such as the Franklin Corridor Study, the American Institute of Architects
Franklin Boulevard community design charette, implementation of the neighborhood-initiated E. 14th
Avenue bike path, Willamette River Open Space Vision and Action Plan, and Interstate-s Willamette
River Bridge project have demonstrated broad community interest in the future of Glenwood.
The unique amenities provided by the Willamette River as it flows through Glenwood are unsurpassed in
the state. In addition, Franklin Boulevard and McVay Highway serve as major thoroughfares connecting
Springfield and Eugene and set the stage for Glenwood as a gateway to both cities. The new 1-5
Willamette River Bridge and associated riparian restoration and multi-use path enhancement projects
further highlight this entryway to the region. The presence of a bus rapid transit line along Franklin
Boulevard and one planned along McVay Highway enhances the possibilities for transit-oriented
development in the Glenwood Riverfront. Glenwood's proximity to the University of Oregon and Lane
Community College, 1-5, and two rail lines also positions it well for successful, mixed-use residential,
commercial, and employment development along the Franklin and McVay corridors. Prior planning and
urban design efforts, as well as visioning with the Glenwood Citizen Advisory Committee for this project,
affirm that the community wants Glenwood to continue to be a unique place with a distinct identify that
takes advantage of Glenwood's existing strengths and seizes the opportunity to set the stage for the
making of a place that will have a lasting legacy. Ensuring that this vision is implemented depends on
the proper arrangement, appearance, and functionality of land uses, infrastructure, and open spaces.
Evolving Vision
The community's contemporary, inspiring vision for Glenwood has been evolving for a number of years.
The 2005 Glenwood Specific Area Plan and 2007 Franklin Boulevard Study described a mixed-use,
transit-oriented development land use pattern and strategies for establishing an attractive
redevelopment area. The 2007 Franklin Corridor design workshops envisioned Glenwood as a "dynamic
place worth going to, not just a place to pass through...a place for people...a sustainable place,
announced by gateways, with a public waterfront, that has green fingers extending into the
community..." The Willamette River Open Space Vision and Action Plan, endorsed by the Springfield City
Council in 2010, communicated a desire for thoughtful river-oriented development in Glenwood
Riverfront to occur in a manner that "incorporates the river as an important amenity, preserves the
scenic quality enjoyed by recreational users and residents, provides river access to people of all ages and
levels of mobility, and seeks opportunities to model river stewardship and educate people about
riparian ecosystems."
Date Recelved:JJ II {/
Planner: MEM
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The Glenwood CAC built upon these statements and highlighted the following as important features to
preserve or change in Glenwood through the policy direction established in the updated GRP:
. Improving access to the river and riverfront, including improving access to the riverfront from
the residential neighborhood south of Franklin Boulevard
. Encouraging urban waterfront development
. Enhancing the river frontage
. Creating more mixed use areas, especially along the riverfront and transportation corridors
. Providing for high density housing and live/work arrangements
. Preserving low-density housing, where appropriate
. Prioritizing aesthetics
. Making the area more attractive and less industrial
. Encouraging design in the regional vernacular
. Encouraging sustainable design
. Making buildings accessible at the human scale
. Minimizing light pollution
. Preserving the independent feel and unique identity of Glenwood
. Preserving the integrity, character, and cohesiveness of Glenwood
. Preserving the magic of the river
. Providing a stronger connection to downtown Springfield and Eugene
. Creating opportunities for public art by regional and local artists
. Creating more opportunities for community gathering spots
. Creating better transportation access & making streets easily navigated
. Providing for alternative transportation, including transit
. Improving the Franklin Boulevard / McVay Highway interface
. Promoting safe and convenient access for pedestrians and bicyclists, including disabled persons
and children
. Preserving efficient transportation corridors
. Creating a multi-use path / greenway loop
. Providing opportunities for varied parking types and putting parking behind businesses
. Preserving the urban forest and old growth trees
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. Preserving wetlands
. Enhancing the ecological function of natural resources, including the riparian ecosystem
. Creating more opportunities for park facilities
. Creating sustainable housing
. Providing a variety of housing types for different households (students, retirees, families, etc.)
. Creating affordable housing
. Facilitating services for the elderly
. Providing assistance to potentially displaced residents
. Encouraging the extension of the University of Oregon and Lane Community College into
Glenwood
. Creating more employment opportunities
. Supporting locally owned businesses and existing services/amenities
. Creating a stronger business corridor
. Creating an opportunity for the Springfield School District to serve Glenwood
This array of features was refined over the course of the Glenwood CAe's visioning process for the GRP
update project, and the CAC approved 13 Visioning Goal Statements in Sept 2009 that summarize their
hopes for a future Glenwood and helped to establish direction for the development of the Phase I GRP
Improve public connections to the Willamette River.
. Establish inviting public spaces, including parks, plazas, and multi-use paths.
. Encourage aesthetically pleasing, sustainable buildings and sites that are context-sensitive and
oriented to human activity.
. Provide opportunities for the installation, display, and creation of public art.
. Allow for a mix of uses suitable to the unique development opportunities in Glenwood.
. Provide opportunities for the development of a variety of housing types to meet the needs of a
range of households.
. Facilitate opportunities for businesses to provide goods and services to local, regional,
statewide, national, and international markets.
. Restore, enhance, and protect the ecological function of natural resources, and increase public
awareness of these resources.
. Protect the public from potential natural and manmade hazards.
. Celebrate Glenwood's contributions to the region's historic development.
Datel RfJoelvecl:~
Planner: MEM
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. Enhance the transportation system to improve safety, convenience, and movement for all
modes of travel, including vehicles, trains, public transit, bicycles, and pedestrians.
. Provide a full range of urban public facilities and services for redevelopment and new
development.
. Facilitate redevelopment while addressing the consequences of change to existing residents and
businesses.
.
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Figure 1
9
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Glenwood Refinement Plan
Phase Boundaries and
Former Plan Sub-areas
D Phase 1 (Glen wood Riverfront)
D Phase 2
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Land Use & Built Form Chapter
August 19, 2011
Land Use Context
Willamette River
The presence of the Willamette River has shaped development patterns throughout Glenwood's history,
from early farming activities and residential uses adjusted for frequent flooding to later extraction
enterprises taking advantage of sand and gravel river deposits. With nearly three miles of shoreline
forming the east and north edges of Glenwood, the presence of the Willamette River continues to figure
heavily into the desired type and form of development along the Glenwood Riverfront. Glenwood Phase
1 builds upon earlier planning efforts in the 1980s and early 2000s that contained recommendations
including: considering phasing out long-term storage of industrial equipment and debris as uses change;
restoring the riverbank; and organizing new development along the river with a mix of activities that
recognize and respect the unique natural, recreational, and aesthetic amenities provided by the
Willamette River as it flows through Glenwood. In addition, requirements of the Clean Water Act and
the Endangered Species Act call for specific measures to make development environmentally
responsible by enhancing and conserving the water quality and wildlife habitat functions of the
Willamette River and its riparian corridor.
Having an urban setting in Glenwood will, of course, need to both integrate natural riparian and habitat
functions and maintain them as a well-managed urban interface for infrastructure, residents, and
visitors accessing the riverfront. The arrangement of land uses, the street system, public open spaces,
and design standards related to building form and height outlined in Glenwood Phase 1 are also
intended to promote increased intensity of use, for mixed uses involving residential, commercial, and
employment activities, while also promoting the development of physical public access for all to the
riverfront and protection of views for visual enjoyment.
Neighborhood Design
Land use and neighborhood design patterns, including streets and open spaces, and the arrangement of
dwellings, workplaces, and shops, create a neighborhood pattern that supports residents' choices and
behaviors that have a significant effect on the quality of the environment and the experience of
individuals and families living, working, and visiting that place. Glenwood Phase l's mix of
complementary uses developed in a compact urban form in appropriate locations, together with an
interconnected and walkable street network and inviting open spaces, encourages more lively,
interesting, pedestrian-friendly, and safer living, working, meeting, and shopping experiences day and
night. Compared with the existing Refinement Plan, Glenwood Phase 1 has a more efficient pattern of
transportation and other infrastructure that encourages walking, bicycling, and use of public transit for
daily errands and commuting. The land use pattern established in Glenwood Phase 1 is beneficial for
individual health, the environment, and the community at large as it allows residents and workers to
mingle and have social interactions, helps to shorten trips and reduce vehicle miles traveled, is
supportive of car-free living and transit investments, and encourages daily physical activity associated
with walking and biking. The Glenwood Riverfront provides singular opportunities for this to occur with
redevelopment. Consequently, the land use vision for the Glenwood Riverfront emerging out of this
planning process seeks to cluster residences, jobs, and shopping/service opportunities in proximity to
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each other and to ensure frequent EmX transit service that is interwoven with a comprehensive system
of pedestrian-friendly streets and open space amenities.
Sustainability
Sustainability, broadly speaking, is the capacity to hold up or to endure without external influences. In
ecology, it describes how biological systems remain diverse and productive over time, such as long-lived
and healthy wetlands. For humans, sustain ability is the potential for long-term maintenance of our
wellbeing, which, in turn, depends on the health of the natural world and the responsible use of natural
resources. Sustainability has come to be used in the development context as balancing economic,
social, and environmental interests by managing the environment and human use of resources. With
sustainable development, communities strive to improve the quality of human life in the present
without compromising the ability of future generations to meet their own needs.
The benefits of environmentally responsible development, sometimes referred to as 'green
development', extend well beyond the quantifiable energy, water, and financial efficiencies to
consumers and governments. Green building and neighborhood development generates jobs, reduces
strain on public infrastructure and resources, creates and maintains healthier indoor and outdoor
environments, and inspires growth and innovation in the local economy. Over the course of the
development of Glenwood Phase 1, several citizen and technical advisory committee members,
neighborhood representatives, and potential developers alike acknowledged the positive and
transformative impact that sustainable buildings and communities can have on pressing local, state, and
regional issues and advocated for the promotion of sustainable design, construction, and neighborhood
development in Glenwood.
This Plan does not require future development or redevelopment in Glenwood to achieve LEED for
Neighborhood Development (LEED NO) certification. However, Glenwood Phase 1 does encourage
design teams for proposed future development and redevelopment in Glenwood to include a green
building professional, and future development and redevelopment is encouraged to be designed and
constructed so that it could be certified through the LEED NO program. LEED NO is a rating system
developed by a diverse group of interested parties, including leading professionals in environmental
policy and building industries, natural resource preservationists, the US Green Building Council, and
representatives from local and state governments that aims to certify exemplary development projects
that perform well in terms of efficient, sustainable building and development practices. This rating
system, which is comprised of a set of performance standards, recognizes the benefits of sustainable
land development and planning at a neighborhood scale and establishes a national standard for green
neighborhood design. The LEED NO program is voluntary and was designed to evaluate and guide the
design and construction of specific development projects. However, it can be used to analyze whether
local development regulations, such as zoning codes, design standards, landscape requirements, or
comprehensive plans are 'friendly' to sustainable development and to help identify barriers that add to
the cost or complexity of the review and construction of sustainable development projects.
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Selecting a good development location from a sustainability point of view is a key component of the
LEED NO rating system. In fact, there are five 'smart location and linkage' prerequisites that
developments must meet in order to even be considered. These components, along with several of the
additional location-related points, are intended to encourage development and redevelopment near
existing neighborhoods and public transit infrastructure, to reduce vehicle trips, and to encourage daily
physical activity associated with walking and biking. While location alone does not ensure projects will
receive certification, it is an indication of a promising area for green neighborhood development. The
Glenwood Riverfront, and in particular the stretch of the riverfront paralleling Franklin Boulevard,
already has several features working in its favor such that future development or redevelopment in the
Glenwood Riverfront could meet the LEEO NO prerequisites. For instance, development within the
Glenwood Riverfront can be served by existing or planned water and wastewater infrastructure, and
most development in the Glenwood Riverfront would be considered 'infill: one of the cornerstones of
sustainability. In addition, development along the portion of the riverfront paralleling Franklin
Boulevard will fall within a half mile walking distance of EmX stops with frequent transit service and will
be within a quarter mile of a future bicycle network. Further, future development in the Glenwood
Riverfront will reduce the need for an Urban Growth Boundary expansion for residential development
and therefore will not affect prime agricultural land. Policy direction in Glenwood Phase I, as well as
existing local, state, and Federal policies, will also ensure that future development in the Glenwood
Riverfront will comply with other prerequisites of the LEEO NO rating system, such as compliance with
restoration and/or protection measures associated with floodplains, wetlands, water bodies, steep
slopes, threatened species, and riparian ecology.
As encouragement to respect the principles embodied in LEEO NO, whether or not certification is
sought, the land use, circulation, and open space concepts put forth in Glenwood Phase 1 take into
consideration many of the core principles of the LEED ND rating system that are most applicable and
appropriate in Glenwood. For instance, the proposed block sizes, densities, street connections, and
provisions for reduced parking conform to several of the performance measures used in the LEEO NO
program. Whether the LEEO ND continues to exist in its current form or whether other tools for
encouraging neighborhood-level sustainability emerge, such as EcoDistricts', implementing these core
principles is critical for supporting sustainable development and redevelopment in the Glenwood
Riverfront. The LEED NO program also offers opportunities for Springfield to consider studying
additional strategies in the future to incentivize green development in Glenwood and in Springfield in
general, such as requiring private development projects receiving financial support from the Springfield
Economic Development Agency to achieve (or be able to achieve) LEED certification, or the development
of a program with density bonuses offered for, among other outcomes, LEEO ND project certification.
Buildable Land Needs
Residential Land and Hausing Needs
1 Portland has defined EcoDistricts as: "an integrated and resilient district or neighborhood that is resource efficient; captures,
manages, and reuses a majority of energy, water, and waste on site; is home to a range of transportation options; provides a
rich diversity of habitat and open space; and enhances community engagement and wellbeing".
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Statewide Planning Goal 10, Housing, requires Springfield to provide an adequate land base to
accommodate a full range of choice in housing type, density, cost, and location throughout the City to
meet the community's housing needs. Springfield has historically addressed this requirement through
its residential land use designations updated periodically through the Eugene-Springfield Metropolitan
Area General (Metro) Plan. In 2007, the Oregon Legislature required Eugene and Springfield to establish
separate urban growth boundaries (UGB) that included separate 20-year residential lands inventories
for each city. In response to House Bill 3337, Springfield conducted a study to determine the City's
housing needs for 2010-2030 and to evaluate the sufficiency of land available for residential uses within
Springfield's UGB. The resulting Springfield Residential Land and Housing Needs Analysis (RLHNA)
identified a deficit of 28 gross acres for high-density residential uses and associated public/semi-public
land intended to provide public open space for the higher density development, as well as any needed
supporting public facilities. At that time, Springfield City Council mandated that Springfield plan for and
rely on a redevelopment strategy in the Glenwood Riverfront to accommodate all of this deficit.
Commercial and Industrial Land Needs and Economic Development Strategies
In January 2010, the Springfield City Council passed a resolution adopting the Springfield Commercial
and Industrial Buildable Lands Inventory, Economic Opportunities Analysis, and Economic Development
Objectives and Implementation Strategies (CIBL). The CIBL concluded that most new employment
growth in Springfield will not require vacant land, consistent with the City's economic development
strategies to encourage redevelopment, especially in Glenwood. Therefore, Springfield will likely be
able to meet future employment land needs for sites five acres and smaller within the existing Urban
Growth Boundary (UGB), through redevelopment and infill development. However, expansion of the
UGB is expected to be necessary to accommodate forecast employment growth and provide larger sites
for target industry employers in order for Springfield to meet local community development objectives.
The CIBL summarizes site needs and key locational issues for firms in potential growth industries in
Springfield. As noted throughout this Plan, parcels in the Glenwood Riverfront meet a variety of these
desirable site attributes as noted below:
. Flat sites - Flat topography (slopes with grades below 10%) is needed by almost all firms in
every industry except for small office and commercial firms that could be accommodated in
small structures built on sloped sites. Most Glenwood Riverfront sites are flat; some available
sites have slopes that exceed 5% which may be inappropriate for some, but not all,
employment uses.
. Parcel configuration and parking - Large industrial and commercial firms that require on-site
parking or truck access are attracted to sites that offer adequate flexibility in site circulation
and building layout. In general, rectangular sites are preferred, with a parcel width of at least
200 feet and length that is at least two times the width; parcel width of at least 400 feet is
desired for flexible industrial/business park developments and the largest commercial users.
Many sites in the Glenwood Riverfront meet these dimensional requirements or may be
consolidated to meet them.
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. Soil type - Soil stability and ground vibration characteristics are fairly important
considerations for some highly specialized manufacturing processes; otherwise, soil types are
not very important provided that drainage is not a major issue. This Plan includes policy
direction for limiting development on areas in the Glenwood Riverfront such as wetlands,
flood plains, riparian corridors, wildlife areas, steep slopes, and other sensitive areas.
. Road transportation - All firms are heavily dependent upon surface transportation for
efficient movement of goods, customers, and workers. Access to an adequate highway and
arterial roadway network is needed for all industries. Businesses in the Glenwood Riverfront
have access to 1-5, Franklin Boulevard, and McVay Highway. This Plan includes policy
direction to work with businesses to increase automotive capacity in newly
developed/redeveloped areas where the intensity of employment uses is anticipated to
increase substantially in the Glenwood Riverfront.
. Rail transportation - Rail access can be very important to certain types of industry. Parcels in
the southern portion of the McVay Riverfront section of the Glenwood Riverfront have rail
access.
. Air transportation - Proximity to air transportation is important for some firms. Springfield is
located 15 miles from the Eugene Airport.
. Transit - transit access is very important for many types of businesses. The EmX bus rapid
transit system serves existing and future employment areas in the Franklin Riverfront; this
Plan provides policy direction for future transit access in the McVay Riverfront.
. Pedestrian and bicycle facilities - The ability for workers to access amenities and support
services by foot or bike is increasingly important to employers, particularly those with high-
wage professional jobs. The need for safe and efficient bicycle and pedestrian networks will
prove their importance over time as support services and neighborhoods are developed
adjacent to employment centers. This Plan provides policy direction for improved bicycle and
pedestrian facilities in the Glenwood Riverfront.
. Labor force - Employers want to be assured of an adequate labor pool with the skills and
qualities most attractive to that industry. Commuting patterns within Springfield suggest that
businesses in Springfield have access to the workforce of the Eugene-Springfield Region.
. Amenities - According to the International Economic Development Council, attracting and
retaining skilled workers requires that firms seek places offering a high quality of life that is
vibrant and exciting for a wide range of people and lifestyles. This Plan provides policy
direction for improved open space and other urban amenities.
. Fiber optics and telephone - Most industries expect access to multiple phone lines, a full
range of telecommunication services, and high-speed internet communications. The
Glenwood Riverfront has access to high-speed telecommunication facilities.
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. Potable water - The demand for potable water and water for fire suppression varies widely.
This Plan provides policy direction to ensure current and planned water facilities in the
Glenwood Riverfront are/will be sufficient to meet current and expected needs.
. Power requirements - The demand for electricity also varies widely. This Plan provides policy
direction to ensure current and planned electric facilities in the Glenwood Riverfront are/will
be sufficient to meet current and expected needs.
. land use buffers - According to public officials and developers/brokers, industrial areas have
operational characteristics that do not blend as well with residential land uses as they do with
office and commercial uses. Selected commercial office, retail, lodging, and mixed use
activities are becoming acceptable adjacent to light industrial uses. This Plan includes policy
direction to designate adjacent uses that are compatible in the Glenwood Riverfront.
Nodal Development
These neighborhood design patterns are sometimes referred to as 'nodes' in the Eugene-Springfield
metropolitan area. The nodal concept was accepted by the Oregon Department of land Conservation
and Development as a measure for the region to reduce vehicle miles traveled in compliance with the
Oregon Transportation Planning Rule in 2001. As described in the Eugene-Springfield General
Metropolitan Area Plan (Metro Plan), the nodal designation prescribes development In a mixed-use,
pedestrian-friendly land use pattern that seeks to increase concentrations of population and
employment along major transportation corridors with a mix of diverse and compatible land uses and
public and private improvements designed to be pedestrian- and transit-oriented. This designation in
the Metro Plan lists the fundamental characteristics of nodal development as follows:
. Design elements that support pedestrian environments and encourage transit use, walking, and
bicycling;
. A transit stop that is within walking distance (generally X mile) from anywhere in the node;
. Mixed uses providing services within that waiking distance;
. Public spaces, such as parks, public and private open space, and public facilities, that can be
reached without driving; and
. A mix of housing types and residential densities that achieve an overall net density of at least 12
units per net acre.
The 2002 TransPlan identified more than SO sites throughout the Eugene-Springfield metropolitan area
that were considered to have the potential for this type of land use pattern, including a portion of the
Glenwood Riverfront paralleling Franklin Boulevard. Implementation of the 200S Glenwood Riverfront
Specific Area Plan included putting the nodal development strategy into action by applying the Metro
Plan's Nodal Designation to the approximately 50-acre Riverfront Plan District boundary, as depicted in
Figure 1. Implementation Action 2.4 in the Springfield 2030 Refinement Plan Residential land Use and
Housing Element calls for Springfield to increase opportunities for mixed-use nodal development,
including considering expansion of the Glenwood node through the Glenwood Refinement Plan Update
process. This Plan contains objectives, policies, and implementation strategies, as described later in the
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Land Use Chapter, that include direction for meeting this implementation strategy in the Glenwood
Riverfront.
Land Use Framework
The Glenwood Riverfront is divided into two principle sub-areas, which, due to their location, natural
features, existing ownership and development patterns, and proximity to key infrastructure and other
amenities, present distinct development and redevelopment opportunities. The Franklin Riverfront
portion of the Glenwood Riverfront includes land on either side of Franklin Boulevard east of the I-S
Bridge to the Springfield Bridges, as depicted in Figure 2. The McVay Riverfront portion of the Glenwood
Riverfront includes land on either side of McVay Highway from the Franklin Boulevard/McVay Highway
intersection at the north to Springfield's south urban growth boundary in Glenwood, as depicted in
Figure 2.
The land use framework established for Glenwood Phase I identifies the location, mix, and type of
essential uses deliberately selected to maximize the value of the area's proximity to the Willamette
River, major transportation corridors, the University of Oregon, and its strategic location between
Eugene and downtown Springfield. The land use framework also considers likely development and
redevelopment constraints. It is intended to foster regional market growth and provide options for
living, working, shopping, service, and hospitality environments by guiding the types and forms of future
development and redevelopment in the Glenwood Riverfront that will, in turn, complement
redevelopment in downtown Springfield.
The land use framework for Glenwood Phase I establishes a mix of commercial, office, and industrial
uses that support the creation of jobs that allow individuals to support themselves and their households,
as well as visitor opportunities, in close proximity to, and integrated with, a residential mixed-use area
that provide distinct and additional housing choices in the heart of the Franklin Riverfront area. The
identified uses in the Glenwood Riverfront will complement and enhance Willamette Greenway
principles and will be integrated with public amenities, such as park blocks, to increase overall land
values between the riverfront and Franklin Boulevard/McVay Highway.
Land Use Designations. Zoning & Subareas
Designations
The Glenwood Phase I plan designation map refines the Metro Plan Diagram to illustrate a broad
allocation of projected land use needs in the Glenwood Riverfront, as depicted in Figure 3, and the
objectives, policies, and implementation strategies embodied in the text of the Glenwood Phase I
Refinement Plan, all of which conform to the plan designations and policies of the Metro Plan.
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The Plan designations established within the Glenwood Riverfront are as follows':
o Residential Mixed-Use is established where the intended primary use is high-density residential.
However, to increase the development of housing opportunities in close proximity to supporting
commercial or civic uses needed by residents, limited small scale retail, office, and service uses
are intended as secondary uses if developed as an integral part of the residential development.
o Commercial Mixed-Use is established where the intended primary use is commercial but where
flexibility is provided for high-density residential uses to be permitted as secondary uses either
in stand-alone buildings or integrated with the primary commercial use.
o Office Mixed-Use is established where office employment uses are intended as the primary uses.
However, to provide commercial services needed by office users near their workplace, limited
small scale retail and service uses are intended as secondary uses if developed as an integral
part of the office development. Additional flexibility is also provided under this designation to
allow for limited other uses that are compatible with office development, such as commercial
hospitality services, high-density residential uses, civic uses, and university-related uses as
stand-alone secondary uses or secondary uses integrated with the primary office employment
use in portions of the area designated Office Mixed-Use.
o Employment Mixed-Use is established where office employment and light medium industrial
employment uses are intended as the primary uses with external impacts less than or equal to
office uses. Limited small scale retail and service uses are also intended as secondary uses if
developed as an integral part of the primary employment development to provide commercial
services needed by employees in close proximity to their workplace.
o Nodal Development Area is established where land designated in one of the aforementioned
categories also meet the fundamental characteristics of a node as defined in the Metro Plan:
Design elements that support pedestrian environments and encourage transit use, walking, and
bicycling; a transit stop that is within walking distance (generally X mile) from anywhere in the
node; mixed uses providing services within that walking distance; public spaces, such as parks,
public and private open space, and public facilities, that can be reached without driving; and a
mix of housing types and residential densities that achieve an overall net density of at least 12
units per net acre.
Zoning
Zoning Districts delineate areas that implement plan designations and apply land use regulations and
development standards. In the Glenwood Riverfront, the names of the zoning districts will be the same
as the Plan designations. These zoning districts in the Glenwood Riverfront identify permitted land use
types and mixes and address distinct constraints and diverse amenities that create unique opportunities
for development within the boundaries of four subareas, as depicted in Figure 4. Primary uses are the
principal permitted uses intended to predominate or characterize each subarea. Secondary uses are
'In the event that that Willamalane owns land used for open space, such land may be converted to the Public lands
designation and the Pubiic land and Open Space zone.
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also permitted uses but are intended to be incidental and subordinate to the primary use. Thus, to
preserve the land supply of the primary intended use of each subarea, the prevalence of the secondary
uses must be constrained in some fashion; typically, in terms of their occupancy of a building,
development area, or the subarea as a whole. Re-zoning land consistently with the proposed re-
designation of land will resolve all plan-zone conflicts that existed prior to Plan adoption.
To streamline the typical 'use lists' associated with most zoning district Schedule of Uses, Glenwood
Phase I establishes the definition of categories of uses permitted in plan designations and provides
illustrative examples. These definitions, in tandem with the illustrative examples, guide the uses
permitted in each subarea and avoids extensive lists of permitted uses that inevitably fail to capture
precisely all possible uses, especially given changes in technology, business practices, the economy, and
styles over time. Uses proposed for new development or redevelopment that meet the definition of the
use categories permitted within each subarea will be allowed, provided the Director makes findings that
the proposed use meets the definition of the use category and has no greater impact to surrounding
properties and public infrastructure than those uses as defined or illustrated. If the Director determines
that a use cannot readily meet the definition illustrative example, it will require formal interpretation as
specified in the Springfield Development Code.
The use categories referred to in the subarea descriptions below are as follows. It should be noted that
public open space and public facilities that are developed in accordance with Glenwood Phase I are
permitted in all subareas. In addition, educational facilities compatible with residential, commercial,
and employment uses are permitted as secondary uses in all subareas:
. Residential
o High Density Residentiol: High-density residential uses are permanent attached
dwellings provided at densities greater than 20 dwelling units per net acre; however, in
the Glenwood Riverfront, densities greater than 50 dwelling units per net acre are
required. Examples of high density residential uses include, but are not limited to,
apartments, lofts, condominiums, senior or congregate care facilities, row houses,
townhouses, live/work units, and dormitories.
. Commercial
o Retail Sales and Services: Retail sales and services are commercial enterprises whose
principal activity involves the sale and/or servicing of merchandise, new or reused,
directly to consumers. Examples include, but are not limited to, bookstores, grocers,
pharmacies, art galleries, florists, and apparel shops.
o Eating and Drinking Estoblishments: Eating and drinking establishments are commercial
enterprises whose principal activity involves the sale and/or service of prepared foods
and beverages directly to consumers. Examples include, but are not limited to, bakeries,
cafes, delicatessens, restaurants, coffee shops, brew pubs, and wine bars.
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o Personal Services: Personal services are commercial enterprises whose principal activity
involves the care of a person or a person's apparel. Examples include, but are not
limited to, fitness centers, spas, barber shops, shoe repair, dry cleaners, tailors, and
daycare.
o Professional, Scientific, and Technical Services: Professional, scientific, and technical
services are typically small-scale commercial office enterprises whose principal activity
involves providing a specialized professional, scientific, or technical service to others.
These activities are typically attracted to high-quality settings and can be housed in
office storefronts, office buildings, or in residential or live/work units and typically
require a high degree of expertise, training, and/or certifications. What distinguishes
these types of office uses from office employment uses is that there is typically
frequent, direct interaction between the public and the proprietor. Examples include,
but are not limited to, legal advice and representation, accounting. banking,
architecture, engineering, research, design and marketing. real estate, insurance,
physicians, and counselors.
o Hospitality Services: Hospitality services are commercial enterprises whose principal
activity is the provision of temporary visitor accommodations and/or services to the
public. Examples include, but are not limited to, inns, guesthouses, extended stay
hotels or apartment hotels, limited service hotels, full service hotels, conference hotels,
and conference/exposition centers.
. Employment
o Office Employment: Office employment uses are businesses that are typically housed in
office buildings where there is limited interaction between the public and the
proprietor. The principal activity of these uses is associated with the performance of a
range of administrative, medical, high tech, nanotechnology, green technology,
pharmaceutical and biotechnology, information technology, information management,
and research and development functions. Examples include, but are not limited to, call
centers, corporate or regional headquarters, physicians' clinics, software development,
media production, data processing services, and technical support centers.
o Light Medium Industriol: Light medium industrial employment uses are businesses
engaged in small scale manufacturing, predominantly from previously prepared
materials, of finished products or parts, including processing, fabrication, assembly,
treatment, testing, packaging, warehousing, or distribution of these products. Emphasis
is placed on uses that are not potentially dangerous or environmentally incompatibly
with office employment uses, i.e. generating air pollution, hazardous waste, excessive
noise. These uses typically generate limited/light freight traffic, and all manufacturing
and storage of materials and vehicles occur entirely indoors. Examples include, but are
not limited to, manufacture of electronic instruments, specialty food processing,
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pharmaceutical manufacturing, research and scientific laboratories, and businesses that
recycle manufactured materials for sale to the public.
Glenwood Phase I calls for re-designating and re-zoning all parcels in the Glenwood Riverfront
contemporaneously with the adoption of Glenwood Phase 1. However, if these changes cause existing
uses to not conform to the new zoning district or plan designations, the buildings or structures housing
such non-conforming uses may continue, expand, or be modified as permitted under the Springfield
Development Code regulations governing pre-existing non-conforming uses until they are abandoned or
redeveloped.
Subareas
Subarea A
Subarea A includes just over 33 acres of land in the core of the Franklin Riverfront and is bounded on the
north by the Willamette River, on the south by Franklin Boulevard, on the west by a future northerly
extension of Henderson Avenue, and on the east by a future northerly extension of McVay Highway.
Public infrastructure, as well as the required 75-foot Willamette River riparian setback, reduce the
developable acreage of Subarea A by 32.5% (13.9% streets, 10.5% neighborhood park blocks, 8.1%
riparian setback and riverfront linear park). This figure conforms to the approximately 32% of
residentially-designated land made available by the Metro Plan for auxiliary uses, such as streets,
neighborhood parks, and other public facilities.
Subarea A is intended for the development of an urban high-density residential mixed-use
neighborhood to:
. capitalize on the proximity of transit stations serving a high frequency transit corridor and
existing and future job centers;
. take advantage of riverfront views and unique development opportunities;
. provide additional housing choices for area residents;
. support the high level of publiC investment in infrastructure that has occurred or is planned in
the Franklin Riverfront; and
. help meet an identified deficiency in high density residential land in Springfield.
Residential uses at densities of at least SO dwelling units per net acre are required as a primary use for
all new development and redevelopment in Subarea A; no maximum densities will be imposed.
Residential buildings at these density levels encourage development in a compact, urban form and are
typically four to six stories in height. The most common occupancy types at these densities are multi-
family apartment rentals and condominiums, but senior/congregate living facilities and other attached
dwelling types are permitted. Glenwood Phase I encourages developers In Subarea A to provide a
variety of unit sizes and occupancy opportunities to enable residents from a wide range of economic
levels, household sizes, and ages to live in this subarea. At full build out at this minimum level of
density, the roughly 22 net developable acres in Subarea A would include approximately 1,100
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additional high-density dwelling units to Springfield's housing stock. Subarea A provides the capacity,
however, for at least twice that number of dwelling units.
Livelier development along street edges make for safer streets; ground floor shops and office spaces
provide services needed by residents and attract activity to the street. While development of residential
uses alone is allowed in Subarea A, suitable commercial uses supporting resident needs are encouraged
to be developed as secondary uses that are an integral part of the primary residential development in an
effort to:
. attract activity to the street, making street edges livelier and safer
. create an active street life throughout the day and evening;
. support a pedestrian-friendly environment;
. provide close-in ground floor commercial uses serving residents and employees in the area;
. take advantage of riverfront sites and easy access to major transportation corridors; and
. moderate traffic generation from the high intensity of residential uses in this subarea.
The types of commercial uses allowed in Subarea A are those that generate foot traffic and have few
external adverse impacts on residential life. The permitted use include: retail sales and services; eating
and drinking establishments; personal services; and professional, scientific, and technical services.
However, auto- or truck-oriented/dependent commercial uses are not consistent with the intent of
pedestrian and transit-oriented development and, in some instances, may actually conflict with safe and
convenient movement of pedestrians and bicycles. Uses not permitted nor intended for Subarea A
include, but are not limited to: auto/truck sales, rentals, or services; auto/truck washes; drive-through
facilities; and auto/truck part sales or services.
Subarea A will support transit-oriented development by locating a mix of higher density housing and
compatible commercial uses within a quarter mile of transit stops. Nonetheless, commercial uses in
Subarea A are limited to the ground floor of residential buildings fronting the public realm, such as
streets and parks, because:
. the primary use in Subarea A is residential;
. Subarea A is the only subarea of the Glenwood Riverfront where residential is the required
primary use;
. this is the best way to ensure that Springfield meets some of its high density residential land
needs; and
. Subarea A is not intended to compete with commercial uses in Downtown Springfield or other
commercial districts in Springfield.
On the street side of buildings along Franklin Boulevard, however, the commercial categories listed
above will be permitted as secondary uses on upper stories to enable commercial development to take
advantage of the exposure to Franklin Boulevard and to enable development on the north and south
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sides of Franklin Boulevard to include similar uses. Nevertheless, to preserve the residential land supply
of this subarea, no more than 50% of a development area may be dedicated to commercial uses.
The applicable plan designation and zoning district provide guidance concerning the type and form of
future development and redevelopment desired for Subarea A. Yet, achieving the community vision for
this neighborhood also requires a circulation pattern and open-space framework that supports
residential mixed-use development. In response to this critical piece, the high-density residential and
commercial mix of uses envisioned for Subarea A are connected to the Willamette River and are
organized around a street grid linked to a future multi-way boulevard that ensures a high level of
connectivity and an efficient circulation pattern for pedestrians, bicyclists, and use of public transit.
Subarea A also includes interlocking Park Blocks to provide for open space amenities necessary for a
livable urban high-density residential neighborhood and an urban riparian corridor that protects an
important natural resource and provides for unique stormwater management and regional-serving open
space opportunities. Together, the streets, Park Blocks, and river greenway create a contiguous public
realm that is intended to complement, support, and focus the future residential and commercial
activities in Subarea A. These mixed uses and public realm will, over time, mature into a quality
riverfront neighborhood (these components are discussed in more detail in later chapters).
Subarea B
Subarea B includes nearly 15 acres of land in the northeast corner of the Franklin Riverfront and is
bounded on the north and east by the Willamette River, on the south by Franklin Boulevard and the
South A Street Bridge, and on the west by a future northerly extension of McVay Highway. Subarea B
also includes the northeastern-most block of the street grid. Public infrastructure, as well as the
required 7s-foot Willamette River riparian setback, reduce the developable acreage of Subarea B by
approximately 30% (10.4% streets, 19.2% riparian setback).
Subarea B provides for flexible commercial and/or high-density residential development opportunities in
response to developer interest in and market demand for hotels, conference, entertainment, and other
complementary commercial uses with riverfront views and access that complement the adjacent urban
high-density residential mixed-use neighborhood to the west. Thus, for Subarea B, all five categories of
commercial uses (hospitality services, retail sales and services, eating and drinking establishments,
personal services, and professional, scientific, and technical services) are permitted either as primary
stand-alone uses or as part of a building with a mix of residential and commercial uses. For the same
reasons described above under Subarea A, though, Subarea B is not intended for auto- or truck-
oriented/dependent uses. Residential uses at densities of at least 50 dwelling units per net acre are also
allowed, either as a secondary stand-alone use or as part of a building with a mix of residential and
commercial uses. Nevertheless, since this subarea is designated with commercial as the primary use, in
order to preserve this area for commercial development, no more than 50% of the subarea may be
developed with residential uses.
Subarea C
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Subarea C includes roughly 46 acres of land fronting the Willamette River and/or Franklin Boulevard
distributed throughout the Franklin Riverfront. Specifically, Subarea C includes: the tax lots that
currently front the south side of Franklin Boulevard from the 1-5 Bridge to Glenwood Boulevard in the
southwest corner of the Franklin Riverfront; land in the northwest corner of the Franklin Riverfront,
bounded on the north by the Willamette River, on the south by Franklin Boulevard, and on the east by a
future northerly extension of Henderson Avenue; and land within the Glenwood Phase I boundary on
the south side of Franklin Boulevard from Glenwood Boulevard to Brooklyn Avenue. Public
infrastructure, as well as the required 75-foot Willamette River riparian setback and a significant
wetland/water quality limited water course (WQLW) and its required 50-foot setback, reduce the
developable acreage of Subarea C by approximately 18% (5.1 % streets, 9.5% riparian setback, and 4.9%
wetland/WQLW and setback).
Subarea C emphasizes office employment uses, allowing businesses to locate in a variety of spaces and
provides for the creation of employment opportunities typically associated with jobs that allow
individuals to support themselves and their household. Subarea C supports uses that are in very close
proximity to a future urban high-density residential neighborhood (Subarea A) and is intended to:
. take advantage of the proximity of the University of Oregon and frequent high-speed transit
service with connections to the Downtown Eugene and Downtown Springfield transit stations;
. capitalize on the riverfront and good visibility from/access to major transportation corridors;
and
. help meet an identified need for employment land in Springfield.
As such, office employment uses, as well as professional, technical, and scientific commercial service
uses are considered the primary use in Subarea C.
Subarea C allows, as secondary uses, retail sales and services, eating and drinking establishments, and
personal service commercial uses that predominantly support nearby office employment uses. These
supporting uses are intended to generate foot traffic and have few external adverse impacts on office
employment uses. Nevertheless, commercial uses in Subarea C are limited to ensure land is developed
for employment uses and to concentrate a viable critical mass of retail, eating and drinking, and
personal services development opportunities in the residential mixed-use neighborhood in Subarea A.
Retail sales and services, eating and drinking establishments, and personal services are restricted to the
ground floor where the primary building use is office employment. However, uses such as child care,
indoor recreation centers, cafeterias, restaurants, or other contracted services for the benefit of office
employees and that do not generally serve the public are considered accessory uses and may be located
anywhere within primary use structures.
Subarea C additionally provides flexibility for other secondary uses that address distinct opportunities
and constraints in portions of Subarea C. Nevertheless, to preserve the office employment land supply,
in total, these other secondary uses may not comprise more than 50% of Subarea C.
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For instance, lodging, such as extended stay hotels, is a typical component of office employment areas,
so in Subarea C, hospitality uses are permitted as secondary uses to take advantage of easy access to 1-5
and the University of Oregon. Hospitality uses are only considered appropriate for the portion of
Subarea C located southwest of Glenwood Boulevard or fronting the proposed roundabout at the
intersection of Glenwood Boulevard and Franklin Boulevard. Given the tendency of some hospitality
uses, especially those integrated with office employment uses, to include some residential units, the
conversion of hotel use to residential use would be permitted as secondary uses in these instances.
Due to potential development challenges in the southwest corner of Subarea C posed by the significant
wetland/riparian areas and the likely future restructuring of the storage of materials and operation of
the adjacent Lane County Solid Waste Transfer Station to the south, as well as its immediate adjacency
to Eugene and very close proximity to the University of Oregon, added flexibility in secondary uses is
provided for the portion of the subarea south of Franklin Boulevard and west of Glenwood Boulevard to
support metropolitan-oriented civic uses, such as a fire station.
Suborea 0
Subarea D includes almost 174 acres of land and is comprised of the entire McVay Riverfront. The
required 75-foot Willamette River riparian setback and a significant wetland/riparian corridor and its
required 25-foot setback, reduce the developable acreage of Subarea D by approximately 24% (18.6%
riparian setback, and 0.8% wetland/riparian corridor and setback). The existing railroad right-of-way
further reduces the developable acreage by approximately 4%, and future public infrastructure, such as
streets, will also reduce the developable area of Subarea D.
Subarea D serves as an employment center for office employment and light medium industrial
employment uses whose external impacts are less than or equal to office uses and that typically
promote the creation of a wide range of jobs that allow individuals to support themselves and their
households, serve the region, and complement the future urban high-density residential neighborhood
in Subarea A. Subarea D:
. is in very close proximity to existing industrial uses and a heavily used freight rail corridor;
. capitalizes on the riverfront and easy access to major transportation corridors, including 1-5;
. is relatively flat and contains large parcel sizes;
. is in the heart of the metropolitan area; and
. helps meet an identified need for employment land in Springfield.
Subarea D thus allows, as primary uses, office employment uses and professional, technical, and
scientific commercial service uses. However, what predominantly distinguishes Subarea D from Subarea
C, the Office Mixed-Use- designated subarea described above, is the additional allowance, as a primary
use, of the production, assembly, testing, warehousing, and distribution functions associated with light
medium industrial or technology uses that typically generate limited/light freight traffic. Another
distinction from Subarea C is that Subarea D is considered appropriate for a hospital a primary
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August 19, 2011
employment use (supporting medical office buildings are already considered a primary office
employment use).
As with Subarea C, to provide commercial services for employees in close proximity to their workplace,
Subarea D also allows for retail sales and services, eating and drinking establishments, and personal
service commercial uses that predominantly support and are located on the ground floor of a primary
employment building. However, similar to Subarea C above, uses such as child care, indoor recreation
centers, cafeterias, restaurants, or other contracted services for the benefit of office employees and that
do not generally serve the public are considered accessory uses and may be located anywhere within
primary use structures.
Objective:
Implement land use and transportation-related land use policies found in the Metro Plan, TransPlan
(and/or Springfield TSP), and the Springfield 2030 Refinement Plan to support pedestrian-friendly,
mixed-use development in the Glenwood Riverfront.
Policies & Implementation Strategies:
. Designate and zone land that meets the fundamental characteristics of the Mixed Uses and
Nodal Development Area designations, as defined in the Metro Plan.
o Identify four Glenwood Riverfront Subareas with primary and secondary uses that are
specific to each.
o Maintain and expand the existing nodal designation boundary to include land on both
sides of Franklin Boulevard from the 1-5 Bridges to the Springfield Bridges and on both
sides of McVay Highway between the Springfield Bridges and the railroad trestle, as
depicted in Figure 3.
o Designate and zone land north of Franklin Boulevard in between the northern extension
of Henderson Avenue and the northern extension of McVay Highway as Residential
Mixed-Use, as depicted in Figure 3.
o Designate and zone land north of Franklin Boulevard in between the northern extension
of McVay Highway and the Springfield Bridges as Commercial Mixed-Use, as depicted in
Figure 3.
o Designate and zone land on both sides of Franklin Boulevard from the 1-5 Bridges to S.
Brooklyn Avenue as Office Mixed Use, as depicted in Figure 3.
o Designate and zone land on both sides of McVay Highway from the Springfield Bridges
to the southern terminus of Springfield's Urban Growth Boundary as Employment
Mixed-Use, as depicted in Figure 3.
Glenwood Riverfront Mixed-Use District Plan District
Plan districts are typically established when existing citywide zoning mechanisms cannot achieve desired
development objectives intended to restore, enhance, preserve, or promote the unique character or
features of an area, as specified in a refinement plan or special study. Plan districts thus contain their
own unique regulations specific to an area that supplement or replace other base zones or overlay zone
Page 16 of 20
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August 19, 2011
provisions that apply in more than one area of Springfield. The Glenwood Riverfront has long been
recognized as being unique to the Eugene-Springfield metropolitan area and warrants distinct
treatment.
To implement the land use framework for Glenwood Phase I, this Plan includes policy direction to
establish the Glenwood Riverfront Mixed-Use (GRMU) Plan District that will apply to all parcels within
the Glenwood Riverfront. The GRMU Plan District will contain special development and design
regulations intended to create a sense of place by putting into action community goals for this
incomparable place. The GRMU Plan District will be applied in conjunction with four mixed use zoning
districts, Residential Mixed Use, Commercial Mixed Use, Office Mixed Use and Employment Mixed Use
and several overlay districts, including the Willamette Greenway, Hillside, and Floodplain Overlay
Districts, where applicable.
The GRMU Plan District will supersede the existing Glenwood Riverfront Plan District in the Springfield
Development Code, adopted in 200S to implement the Glenwood Riverfront Specific Area Plan, a master
plan for approximately 50 acres of land in the northeast corner of the Glenwood Riverfront. As directed
by the City Council in 2007, the Glenwood Refinement Plan Update Project was initiated to
comprehensively revise the existing Glenwood Refinement Plan, developed in the 1980s, to establish an
updated vision for redevelopment throughout Glenwood. Initiation of this update recognized that not
only should the policy direction in the Specific Area Plan be considered as a starting point, but also that
it did not address all of the factors now in play in Glenwood, such as street corridor studies,
infrastructure planning, bridge replacement, interchange redesign, significant business relocation, and
an urban renewal district. Glenwood Phase I now builds upon previous planning efforts in the Glenwood
Riverfront. Glenwood Phase I provides a more comprehensive look at the desired types and forms of
new development and redevelopment in the Glenwood Riverfront, so adoption of the GRMU District will
completely replace the existing Glenwood Riverfront Pian District.
Development and Design Standards
From the first public meetings associated with the development of this Plan, the Citizen Advisory
Committee stressed that Glenwood has a unique identity and character, is a gateway to the city and the
region, and that future development/redevelopment in the Glenwood Riverfront should contribute to
furthering a sense of place and distinctiveness in Glenwood. The unique impression and feel of the
riverfront will be created, in part, by the mass, scale, and design of new buildings, the mix of uses, and
the relationship between the public and private realm, much of which can be guided by design and
development standards.
In addition to helping to ensure that Glenwood continues to be considered a unique place, special
attention must be paid to building design in the riverfront corridors because of the intermixing of land
uses and higher intensity of development that can occur in these areas. As the scale of buildings
increase, architectural and site development features should be employed that work to mitigate the
visual impact of the increased density and any possible functional or architectural incompatibility of
Page 17 of 20
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August 19, 2011
uses, and to create a positive relationship between the private and public realm. For instance, as the
Citizen Advisory Committee discussed on several occasions, the form of taller structures necessary to
accommodate the desired levels of density must consider solar access, views, and reducing the sense of
looming buildings at the pedestrian scale.
In an effort to address these issues, one of the goals developed by the citizen advisory committee to
guide the update of the Glenwood Refinement Plan is to 'encourage aesthetically pleasing, sustainable
buildings and sites that are context-sensitive and oriented to human activity: This Plan thus contains
policy direction to create and implement development and design standards to be implemented
through the GRMU Plan District that will promote, through physical design, the attainment of the
Refinement Plan's goals and objectives. These standards, which are applicable to new buildings,
expansions of or additions to existing buildings, or improvements to existing facades that require
building permits, will enable developers, architects, landowners, business owners, residents, and the
general public to anticipate and plan for building and site acceptability as a key element of the overall
project approval process.
Springfield recognizes that overly restrictive design and development standards are often cited by the
development community as cumbersome and prohibitive of good design. As such, not every case and
circumstance will be anticipated by these standards, nor is it the goal to prescribe every design detail of
development or to promote a particular architectural style. At the same time, the standards must be
clear and objective as mandated by Statewide Planning Goal 10. Therefore, the standards describe how
various elements should be incorporated into building and site design clearly and objectively, but it is
expected that the development community will apply its own creativity to build upon the principles
expressed in the standards and create innovative designs and attractive, livable, and viable
developments.
Urban Farm
The character of a neighborhood is often defined by the experience of traveling along its streets. Streets
within neighborhoods are often perceived as individual spaces or 'rooms'. How buildings face and are
set back from the street determine the character, proportion, and use of this room. The
aforementioned development and standards will thus strive to promote the development of an area of
special character and improve the overall physical and visual environment in the Glenwood Riverfront
by providing a framework for the design of buildings and sites for aesthetic appeal, to create a pleasant
and comfortable pedestrian experience, and to foster compatibility among land uses. This framework
builds upon several commonly accepted design principles. For instance, the standards require the
design of buildings to incorporate architectural features, elements, and details to achieve a good human
scale.
The term 'human scale' generally refers to the use of human-proportioned architectural features and
site design elements clearly oriented to human activity. A building has good human scale if it creates a
diversity of experience along the street and allows people to feel comfortable using and approaching it,
l Page 18 of 20
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Planner: MEM
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Land Use & Built Form Chapter
August 19, 2011
thereby encouraging human activity. Elements that may be used to achieve better human scale include,
but are not limited to: a porch or covered entry; pedestrian-oriented open space; upper story step
backs; articulated building facades and roof forms, architectural treatments that help to identify
individual residential units in a multi-family building; pedestrian weather protection; bay windows
extending out from the building fa~ade that reflect an internal space; pedestrian-scale lighting; and
upper story windows.
A comfortable pedestrian environment is also achieved by siting and designing buildings in a way that
creates successful transitions to public spaces, encourages movement into and out of the interior space
of buildings, and enables 'eyes on the street' to provide the informal human surveillance that is
important to safety. By incorporating physical and visual connections to the public space from different
levels of buildings and protecting the public spaces from excessive shadow or auto-oriented intrusions,
such as parking facilities and service drives, the public realm is enlivened with the activity of residents,
shoppers, and workers. Often, building elements that contribute to this include minimal setbacks,
arcades, window openings that allow views into shops, office lobbies, merchandise displays, or working
areas, sidewalk-level openings onto public rights-of-way and interconnected walkways, building forms
that step back, changes in grade, balconies, landscaping, outdoor seating opportunities, limitations on
the siting of parking lots and loading docks, and spaces for active ground floor uses.
Objective:
Implement the Land Use Framework for the Glenwood Riverfront by adopting the Glenwood Riverfront
Mixed-Use District (GRMU) Plan District.
Policies & Implementation Strategies:
. Adopt the GRMU Plan District and apply it to all parcels in the Glenwood Riverfront.
o Develop Plan District sub-sections including, but not limited to: Purpose; Applicability;
Land Use Designations, Zoning District Descriptions and Applicable Overlay Districts;
Review; Non-Conforming Uses; Conflicts; GRMU Plan District Modifications; Design
Standards Alternatives/Exemptions from Design Standards; Phased Development;
Schedule of Use Categories; Prohibited Uses; Use Interpretations; Base Zone Standards;
Public and Private Development Standards; Building Design Standards; and Willamette
Greenway Development Standards.
o Develop development and design sub-sections including, but not limited to: Street Trees
and Curbside Planter Strips; Lighting; Bicycle Facilities; Multiuse Path; Private Property
Landscape Standards; Vehicle/Bicycle Parking and Loading Standards; Wastewater
Facilities and Services; Stormwater Facilities and Services; Public Park and Open Space
Facilities; Location of Transit Stations; Signs; Light Manufacturing Operational
Performance Standards; Historic and Cultural Resources; Design Team; Facades/Vertical
Building Divisions; Height; Massing/Building Articulation; Windows and Doors;
Orientation/Entrances; Built-to Lines and Maximum Building Setbacks; Pedestrian
Amenities; Screening Mechanical Equipment; and Parking Structure Design Standards.
Page 19 of 20
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Planner: MEM
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Transportation Chapter
August 19, 2011
Transportation Chapter
Introduction
The Land Use Chapter establishes direction for a future land use pattern in the Glenwood Riverfront
through an increased intensity of residences, jobs, and shopping/service opportunities developed in a
compact, urban form. This land use pattern aims to maximize the value of the area's proximity to the
Willamette River, major transportation corridors, and the University of Oregon, as well as Glenwood's
strategic location between downtown Eugene and downtown Springfield. These land uses are intended
to be developed in concert with a comprehensive system of highly interconnected and multi-modal
streets that encourage more lively; interesting; pedestrian-friendly; and safer living, working, meeting,
and shopping experiences day and night. Changing the nature of the transportation network in the
Glenwood Riverfront to improve access, mobility, safety, and comfort for motorists, transit users,
pedestrians, and bicyclists is essential to attaining and sustaining the mix, intensity, and types of uses
desired. Accordingly, the Transportation Chapter informs existing and future residents, property
owners, developers, and the community at large how transportation infrastructure should be developed
in the Glenwood Riverfront to provide direct physical and visual access to the river and support future
residents, workers, and visitors who will circulate along and through this mix of uses for, daily
commuting, freight movement, running errands, or simply enjoying commercial and riverfront
amenities.
The Glenwood Refinement Plan update comes at a time of a significant change in State policies that
affect land use and transportation planning. While much of the initiative for this change results from
the legislated need to reduce the levels of gases emitted into the atmosphere from automobiles and
light-duty trucks ("greenhouse gases, or GHG"), the changes involve other fundamental factors
influencing how Oregon cities may grow and prosper. In 2007, the State's Legislative Assembly enacted
requirements for substantial reductions in the quantities of these GHG, setting a 10 percent reduction
target for 2020 and a 75 percent reduction target for 2035. The 2009 and 2010 sessions of the
Legislative Assembly approved legislation requiring the Central Lane Metropolitan Planning Organization
(MPO) to work with Eugene and Springfield to engage in a "scenario planning" process to address how
to achieve these GHG reductions.
A joint effort of the Oregon Department of Transportation (ODOT), the Department of Land
Conservation and Development, the State's seven Metropolitan Planning Organizations, and a variety of
citizen and industry interest groups is developing guidelines and methodologies for scenario planning.
This State agency work program is occurring concurrently with the Springfield's update of the Glenwood
Refinement Plan; therefore, it is not possible to say with certainty how GHG scenario planning
requirements, or other follow-up measures, will affect planning for future development in Glenwood. It
is clear, however, that State agencies will expect Springfield to develop one or more possible alternative
outcomes of how development that reduces GHG might occur Springfield-wide. Their focus will be on
ascertaining which alternatives most efficiently use existing and future transportation and land
resources while simultaneously reducing emissions from autos and light trucks. Leaving aside this
Page 1 of 16
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Transportation Chapter
August 19, 2011
specific direction from the Legislative Assembly, it is clear that finite public resources require that in
planning for the future, Springfield will need to proceed under goals and policies that recognize that
maximizing efficiency includes maximizing the variety of transportation alternatives available to its
citizens. Many of the policies and implementation actions in this Plan, with respect to transportation
and land use, respond to the demands and expectations of a possible future required land use model
that must address this issue of reduced GHG.
The intent of the policies in this Chapter is to ensure that Springfield and its transportation partners
design the circulation network in the Glenwood Riverfront to make all modes safer, more attractive, and
more convenient, offering more options to all users for commuter travel, access to development, and
recreational purposes. This Chapter acknowledges that automobiles and trucks are likely to continue as
primary transportation modes during the Plan period. However, Springfield is committed to a program
creating complete transportation facilities throughout the city. Complete transportation facilities are
designed and operated to enable safe access for drivers, bicyclists, transit users, and pedestrians of all
ages and abilities. In particular, the policies in this Chapter are intended to create a highly pedestrian-
oriented environment to support future mixed-use development and increase the ease and convenience
of walking. For most people, every trip begins and ends as a pedestrian trip, since walkways connect the
private, inside realm to the public, outside realm as they wind from lobbies, stoops, and storefronts to
plazas, sidewalks, and streets. This Chapter provides policy direction to foster pedestrian-friendly
streets in the Glenwood Riverfront through decreasing automobile speeds in neighborhoods, focusing
most through-traffic on arterials, aligning streets to reduce the distance that pedestrians have to walk to
a crosswalk to safely cross a street, allowing sight lines and connections to destinations that attract
pedestrian activity, and minimizing the real and perceived distances between development, transit
stations, parks, and greenway amenities. The Chapter also includes policies regarding street design
features, such as wide setback sidewalks with minimal interruptions in the flow or grade of pedestrian
travel, interesting street furniture and public art, pedestrian-scale lighting, street trees, and other green
street elements that also make the pedestrian experience safe, comfortable, and attractive.
In keeping with the sustainability goals of this Plan as a whole, the transportation system is intended to
support environmentally responsible development by designing transportation infrastructure to meet
the needs of healthy rivers and ecosystems. The Open Space Chapter addresses the impact street runoff
has on natural resources, such as temperature, pollution, volume, speed, erosion, and turbidity with
policy direction that aims to reduce these effects through green street best management practices that
enhance and conserve the water quality and wildlife habitat functions of the Willamette River and its
riparian corridors. The Open Space Chapter also requires the use of green streets: streets designed to
integrate stormwater management within the right-of-way; reduce the amount of water that is piped
directly to streams and rivers; be a visible component of a system of "green infrastructure" in the urban
design of an area; make the best use of the street tree canopy for stormwater interception, temperature
mitigation, and air quality improvement; and ensure the street has the least impact on its natural
surroundings, particularly at locations where it crosses a stream or other sensitive area.
Dft\~ R,@CI'l\\Iecl:.Jl4JL-
Planner; MEM
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Transportation Chapter
August 19, 2011
This Chapter applies to the area of Glenwood referred to as the 'Glenwood Riverfront' that is comprised
of two primary sub-areas, as depicted in Figure 1, which present distinct development and
redevelopment opportunities due to location, natural features, existing ownership and development
patterns, and proximity to key infrastructure and other amenities. The Franklin Riverfront includes land
on either side of Franklin Boulevard east of 1-5 to the Springfield Bridges. The McVay Riverfront includes
land on either side of McVay Highway from the Franklin Boulevard/McVay Highway intersection at the
north to Springfield's southern urban growth boundary in Glenwood.
The primary transportation system components in the Glenwood Riverfront are Franklin Boulevard, the
Franklin Riverfront local Street Network, McVay Highway, the McVay Riverfront local Circulation
Network, parking, and the riverfront multi-use path. This Chapter is organized into sections and sub-
sections devoted to these components. Each section or sub-section provides additional introductory
information, where applicable, in addition to diagrams and images depicting the circulation concepts.
Each section or sub-section also includes objectives, policies, and implementation strategies for the City,
its partners, and developers to follow in achieving the vision for the circulation system in the Glenwood
Riverfront.
Franklin Riverfront
The Franklin Riverfront is comprised of Residential Mixed-Use, CommerCial Mixed-Use, and Office
Mixed-Use areas, as described in the land Use Chapter. Each mixed-use area was designated, in part,
to support the high level of public investment now and later in Franklin Boulevard, capitalize on the
proximity of transit stations along a high frequency, high-speed transit corridor connecting the Eugene
and Springfield downtowns, and to take advantage of the proximity to the Willamette River for
residents, employees, and visitors. These mixed-use areas are also designated for nodal development.
Specific boundaries are in the land Use Chapter, but a node is a mixed-use, pedestrian-friendly land use
pattern that concentrates population and employment along major transportation corridors with a mix
of diverse and compatible land uses and public and private improvements designed to be pedestrian-
and transit-oriented. The objectives, policies, and implementation strategies in the Franklin Riverfront
were thus developed to support these land use designations and also to build upon prior planning
efforts in the Franklin Riverfront, including the Franklin Boulevard Study and the Glenwood Specific Area
Plan. Given the recent, extensive planning activities in support of the redevelopment of the Franklin
Riverfront, the future design of Franklin Boulevard and its adjoining local street network is presented
with a high level of specificity in the policy direction discussed below.
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
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August 19, 2011
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 (NEPAl 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 (EOSPM). The Introduction to the EOSPM 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, ortinal design from project design and delivery.
The conceptual plans for the hybrid Franklin Multi-Way Boulevard, as well as the proposed configuration
of streets off Franklin Boulevard as described in the Local Street Network section below, were
completed with participation by OOOT. At the time this Plan was written, Franklin Boulevard was a
State facility, and Springfield and OOOT were in the process of negotiating a jurisdictional transfer.
Objective:
Re-design and re-construct Franklin Boulevard as a multimodal 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:
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. 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 that 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 2 and 3 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, 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 X, 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 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 4.
o Franklin Boulevard/Glenwood Boulevard Intersection and Franklin Boulevard/McVay
Highway Intersection: Preserve the area shown on Figure 4 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: 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: 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.
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o Henderson Avenue to Mississippi Avenue: 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: Corridor Envelope flares to match the facility at
Henderson and intersection geometry at McVay Highway. Between these two match lines
corridor envelope is approximately 184 feet. 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.
o Enhance the safety, comfort, and convenience of pedestrians and bicyclists along and across the
boulevard.
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.
o Reduce crossing distances and provide pedestrian refuges by utilizing 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 1-5.
o 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 bus rapid transit facilities.
o Construct multi-lane roundabouts at the Franklin Boulevard/McVay Highway 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.
o 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 curbside stations at not only the Franklin Boulevard/Glenwood Boulevard
intersection but also the Franklin Boulevard/McVay Highway intersection.
. d' tlll),1 -
Date Receive .~
Planner: MEM
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. 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.
local Street Network
The desired street functions and design components that allow for land use adaptability to social and
market changes are outlined in the objective, policies, and implementation strategies below. At the
time of development, street designs must comply with Springfield's 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 street design cannot be found in this document, developers
must collaborate with Springfield to design the streets as directed by the policies and implementation
strategies in this section.
Objective:
Establish a grid block pattern of streets to support redevelopment of the Franklin Riverfront that
provides multi-modal internal circulation, disperses traffic, facilitates walking and biking, orients
development to a public realm, and enables clear and direct physical and visual routes between Franklin
Boulevard and the riverfront.
Policies & Implementation Strategies:
. Partner with property owners and private developers to fund, dedicate right-of-way, design,
and construct an interconnected local street system in the Franklin Riverfront that improves
access, mobility, safety, and comfort for vehicles, pedestrians, and bicyclists, as conceptually
depicted in Figure 5.
o Coordinate with lane County to facilitate the new street system through annexation and
vacation of existing local access roads.
o Coordinate with lane County to provide an orderly transition from rural to urban roads
through annexation and jurisdictional transfer of existing lane County roads.
o Promote optimum conditions for the use of passive and active solar strategies by
aligning streets to optimize the penetration of natural light to buildings and public
spaces.
o Promote short blocks and pedestrian-friendly larger block development sites by
providing through block streets or accessways every 250 to 350 feet.
o Extend Glenwood Boulevard, Henderson Avenue, Mississippi Avenue, and McVay
Highway north of Franklin Boulevard to the riverfront street as primary north/south
through streets.
o Establish additional north/south through streets extending from Franklin Boulevard's
access lanes to the riverfront street in between Henderson Avenue and McVay Highway
to include the park blocks as conceptually depicted in Figure 6 and as specified in the
Open Space Chapter.
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o Establish an east/west through street between the northern edge of development and
the riverfront from the northern extension of Glenwood Boulevard to the northern
extension of McVay Highway, to avoid dead-end north/south streets; offer continuous
public access, emergency access, and maintenance access along the riverfront; clarify
public entrances and exits along the riverfront; and increase the actual and perceived
safety of the riverfront.
o Establish east/west service streets from the northern extension of Henderson Avenue to
the northern extension of McVay Highway to improve access, connectivity, and parking,
loading, and collection services in between proposed new north/south streets.
o Consider a maximum of one through alley per block face to provide service access to
mixed-use inner block development sites.
o Placeholder: If the Conceptual Local Street Map, EDSPM, and Std Specs are not updated
concurrently with this Plan, implementation strategies related to those steps will go
here.
. Design north/south through streets to support and provide direct access to the mixed-use
development facing these streets and increase safety, comfort, and attractiveness for bicyclists
and pedestrians, as conceptually depicted in Figure 7.
o Develop two-way local streets consistent with maximum speeds of 20 miles per hour.
o Consider developing the streets around the park blocks as one-way couplets consistent
with maximum speeds of 20 miles per hour.
o Use traffic calming techniques, such as reduced lane widths, raised crosswalks and
intersections, mini roundabouts, and pedestrian priority crossings.
o Provide for direct, continuous, and safe bicycle travel along both sides of these streets.
o Incorporate continuous, wide setback sidewalks that are buffered from traffic flow and
that consider the adjacent land use context pertinent to development on both sides of
these streets.
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, public art, street lights, and pedestrian scale lighting.
o Provide short-term, on-street parking bays on both sides of the primary north/south
streets.
o Consider providing short-term, on-street parking bays only on the developed side of the
north/south park block streets.
o Limit access to inner block development from these streets unless access for loading,
parking, and/or collection services is not possible from east-west service streets.
o Maintain the elevation and appearance of sidewalks where crossed by vehicular access
points.
o Consider alternative designs for through block accessways on larger block development
sites that function as safe and direct access routes for pedestrians and bicyclists and
include trees, landscaping, and pedestrian-scale lighting.
Date Recelved:~80f16
Planner: MEM
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o Design east/west service streets to provide vehicular access for parking, loading, and collection
services to inner block mixed-use development sites while also increasing safety, comfort, and
attractiveness for bicyclists and pedestrians and providing direct access to and supporting the
mixed-use development facing these streets, as conceptually depicted in 6; at least one of the
service streets must be a through street.
o Develop two-way local streets with target speeds consistent with maximum speeds of
20 miles per hour.
o Design the street segments that cross through the park blocks to be as narrow as
possible while still accommodating two-way traffic, emergency vehicle access, and
potentially, on-street parking.
o Use traffic calming techniques, such as reduced lane widths, raised crosswalks and
intersections, mini roundabouts, and pedestrian priority crossings.
o Provide for direct, continuous, and safe bicycle travel along both sides of these streets.
o Incorporate continuous, wide setback sidewalks that are buffered from traffic flow and
that consider the adjacent land use context pertinent to development on both sides of
these streets.
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, public art, street lights, and pedestrian scale lighting.
o Provide short-term, on-street parking on both sides of these service streets.
o Keep the frequency of curb cuts, loading docks, garage entrances, and driveways to a
practical minimum, ideally no more than one vehicular access point per block face.
o Maintain the elevation and appearance of sidewalks where crossed by vehicular access
points.
o Consider alternative designs for these streets, including street trees, landscaping, and
pedestrian-scale lighting, while maintaining functionality as safe and direct access
routes for pedestrians, bicyclists, and vehicles.
o Design an east/west riverfront through street to support and provide direct access to the mixed-
use development facing this street and increase safety, comfort, and attractiveness for bicyclists
and pedestrians, as conceptually depicted in Figures 8, 9, and 10.
o Develop a two-way local street with target speeds consistent with maximum speeds of
20 miles per hour.
o Use traffic calming techniques, such as reduced lane widths, raised crosswalks and
intersections, mini roundabouts, and pedestrian priority crossings.
o Provide for direct, continuous, and safe bicycle travel along both sides of these streets.
o Incorporate a continuous, wide setback sidewalk that is buffered from traffic flow and
that considers the adjacent land use context pertinent to development on the south
side of this street and a continuous, wide setback sidewalk that is buffered from traffic
flow and considers the adjacent open space context on the north side of this street.
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o Design this street using distinctive pavement treatments within the vehicular lanes of
the street and using retractable bollards, pavement treatments, or other features to
separate curb-less sidewalks from vehicular lanes.
o Enhance the urban design of the area and differentiate the building/frontage lone, the
travel/throughway lone, the furnishing zone, and the curb/edge lone 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, public art, street lights, and pedestrian scale lighting.
o Provide short-term, on-street parking bays on only the south side of this street (no on-
street parking on the north side of this street).
o Limit access to inner block development from this street unless access for parking
services is not possible from the east-west service streets; truck access for loading
and/or collection services is not permitted off this street.
o Maintain the elevation and appearance of sidewalks where crossed by vehicular access
points.
McVav Riverfront
The McVay Riverfront is designated as an Employment Mixed-Use area, as described in the Land Use
Chapter. Future development will take advantage of this area's very close proximity to a heavily used
freight rail corridor, easy access to a planned bus rapid transit corridor and existing major transportation
corridors, including 1-5, and proximity to the Willamette River for employees. The uncertainty around
the circulation needs of future employment mixed-use development, coupled with relatively shallow
developable depth of land between McVay Highway and the river, has led to more flexible policy
direction regarding the alignment and design of the circulation network in the McVay Riverfront.
The desired street and accessway functions and design components are outlined in the objectives,
policies, and implementation strategies below. At the time of development, proposed street,
accessway, and driveway designs must also comply with Springfield's 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 street design cannot be found in this document, developers
must collaborate with Springfield to design the streets as directed by the policies and implementation
strategies in this section.
The desired elements of an upgraded McVay Highway, as well as the proposed configuration of streets
off McVay Highway, as described in the Local Street Network section below, were completed with
participation by ODOT. At the time this Plan was written, McVay Highway was a State facility, and
Springfield and ODOT were in the process of negotiating a jurisdictional transfer.
McVay Highway
Recel~e(t~
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Objective:
Re-design and re-construct McVay Highway as a multimodal transportation facility to support
redevelopment in Glenwood as envisioned in the Land Use Chapter while also providing an improved
arterial connection between Springfield, Eugene, and Interstate S.
Policies & Implementation Strategies:
. Partner with ODOT and LTD, property owners, and private developers to fund, dedicate right-of-
way, design, and construct the upgraded street.
. Construct street improvements to increase the safety, mobility, and efficiency of automobiles,
trucks, and bus rapid transit service as funding becomes available.
a Design the upgraded street such that the maximum necessary width does not exceed
two northbound and two southbound through lanes; dedicated bus rapid transit or
other transit facilities, or landscaped median; a continuous and safe bicycle facility along
both sides of the street; and continuous setback sidewalks buffered from traffic flow.
a Finalize the number of through travel lanes for automobiles and trucks based on future
employment mixed-use development and through traffic volumes.
a Develop intersections with traffic controls in the vicinity of East 19'h Avenue, Nugget
Way, and the southern end of Glenwood, as conceptually depicted in Figure 11.
a Coordinate with Union Pacific to develop a plan for widening the right-of-way and
improved roadway width underneath the railroad trestle at the north end of this street.
a Partner with L TD regarding planned bi-directional bus rapid transit service or other
future transit requirements in the corridor, and coordinate planning of street
improvements to address future transit system requirements.
a 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 to improve facility operations and reduce safety conflicts.
. Locate transit stations where they will provide optimal, safe pedestrian access to existing uses
and the adjacent areas planned for employment mixed-use development.
a Establish median or curbside transit stations between E. 19'h Avenue and the southern
end of Glenwood, in the vicinity of E. 19th Avenue and Nugget Way.
. Integrate street improvements that enhance the safety, comfort, and convenience of
pedestrians and bicyclists along and across the street.
a Incorporate continuous, setback sidewalks that are buffered from traffic flow and that
consider the adjacent land use context pertinent to development on both sides of the
street.
a Use curb extensions, stop controls, or other appropriate traffic control devices at
intersections to reduce crossing distances and provide pedestrian refuges.
a Provide enhanced pedestrian crossings to transit stations.
a Provide a continuous and safe bicycle facility along both sides of this street.
. Enhance the urban design of the area through the use of street trees, streetlights, pedestrian-
scale lighting, and landscaping.
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. 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.
Local Street Network
Objective:
Establish a street network in the McVay Riverfront, similar in functionally to the street grid in the
Franklin Riverfront, which supports mixed-use development off McVay Highway, enhances multi-modal
internal circulation, disperses traffic, facilitates walking and biking, orients development to a public
realm, and enables clear and direct physical and visual routes between McVay Highway and the
riverfront.
Policies & Implementation Strategies:
. Collaborate with property owners and private developers to fund, dedicate right-of-way, design,
and construct a street system in the McVay Riverfront that enables access, mobility, safety, and
comfort for vehicles, pedestrians, and bicyclists.
o Coordinate with Lane County to provide an orderly transition from rural to urban roads
through annexation and jurisdictional transfer of existing Lane County roads.
o Promote optimum conditions for the uSe of passive and actiVe solar strategies by
aligning the street network to optimize the penetration of natural light to buildings and
public spaces.
o Promote short blocks or pedestrian-friendly larger block development sites by providing
through block streets, accessways, or shared driveways every 250 to 350 feet.
o Create primary east-west streets extending eastward from intersections in the vicinity of
the existing or re-aligned East 19th AVenue, Nugget Way, and the southern end of
Glenwood.
o Establish access to individual development sites via connections to the primary east-
west streets or connections to shared driveways with special design consideration for
minimizing out-of-direction travel, traffic congestion, and conflicting turning
movements.
o Evaluate and address street connectivity for existing discontinuous public streets and/or
rights-of-way as development occurs in the vicinity of such streets.
. Design streets, accessways, and shared driveways to support the employment mixed-use
development, and make biking and walking safe, comfortable, and attractive.
o Develop two-way local streets with target speeds consistent with maximum speeds of
20 miles per hour.
o Use traffic calming techniques, such as reduced lane widths, raised crosswalks and
intersections, mini roundabouts, and pedestrian priority crossings.
o Provide for direct, continuous, and safe bicycle travel along both sides of these streets.
Date Received:~ Page 12 of 16
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o Incorporate continuous, setback sidewalks that are buffered from traffic flow and that
consider the adjacent land use context pertinent to development on both sides of these
streets.
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, public art, street lights, and pedestrian scale lighting.
o Provide short-term, on-street parking on both sides of these streets.
o Keep the frequency of curb cuts, loading docks, garage entrances, and driveways to a
practical minimum, ideally no more than one vehicular access point per block face.
o Maintain the elevation and appearance of sidewalks where crossed by vehicular accesS
points.
o Consider alternative designs for through block accessways on larger block development
sites that function as safe and direct access routes for pedestrians and bicyclists and
include trees, landscaping, and pedestrian-scale lighting.
Parkin~
A fundamental component in fostering compact, mixed-use, transit-oriented development to shift
automobile usage to other modes is adequately managing vehicle parking spaces. The policy direction
provided by this Plan for land use and transportation encourages increased mode share for transit,
cycling, and walking and to meet some portion of the parking demand through on-street parking.
However, this mode share shift will not occur overnight when development is built. This Plan
acknowledges the reality that auto and truck use could possibly continue to be the primary mode choice
during the 20-year Plan period. Therefore, consideration must be given to ensuring that adequate
parking is provided to support new development and redevelopment (especially related to obtaining
financing) while minimizing the adverse visual, environmental, and financial impact of parking. To
support a viable parking system and, at the same time, encourage multi-modal growth and the
development of housing that meets the needs of a range of households, there must be a direct
relationship between Springfield's parking standards, actual parking demand, and broader goals for use
of alternative transportation modes and housing affordability. In other words, minimum parking
requirements should always be less than the actual maximum demand for parking.
In line with the land use vision for compact development and a pedestrian-friendly environment, below-
grade parking facilities and parking facilities incorporated into commercial or residential building
structures should be considered to the greatest extent possible. Multi-story parking structures are also
encouraged, as is ground-level parking located under and screened by habitable/usable spaces. On
street parking supply should be managed for the benefit of high value uses with significant commercial
revenue opportunity. These high value uses do not require long duration occupancy of on street parking
spaces; on street parking should be reserved for high turnover purposes, typically 2 hours or less.
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It is anticipated that as development occurs in the Glenwood Riverfront, parking will increasingly be met
by these methods or by mode shift. However, especially in the early stages of development, it is
possible that off.street surface parking will be used to meet parking demand. To minimize the impact of
auto parking and driveways on the pedestrian environment and adjacent properties on north-south
streets, access to all off-street parking, surface or otherwise, should be from east-west streets in the
Franklin Riverfront. A similar effort will be made to minimize the impact of auto parking and driveways
on the pedestrian environment in the McVay Riverfront.
At the time this Plan was developed, Springfield was also in the process of developing an urban design
plan for Downtown. As part of the Downtown planning process, Rick Williams Consulting, working with
a stakeholder committee, developed a Downtown Parking Management Study and Plan, complete with
recommendations that were adopted by City Council in 2010. While parking management in the context
of a largely developed downtown and an underdeveloped Glenwood Riverfront would have distinct
objectives and implementation strategies, there are several recommendations from the Downtown
Parking Management Plan that are worth addressing as part of Glenwood Phase I.
Objective:
Develop and implement comprehensive, effective, and workable parking management strategies to
provide sufficient on street and off street parking in the Glenwood Riverfront and strategically support
the development of a vibrant, growing, and attractive destination for living, working, shopping, and
recreating.
Policies & Implementation Strategies:
. Evaluate and develop parking standards for inclusion in the Glenwood Riverfront Mixed-Use
Plan District that: support Plan goals for transit, biking, walking, and ridesharing; and provide
sufficient parking, in conjunction with an access system that provides balanced travel mode
options.
a Establish parking ratios for low turnover, longer term off street parking for new
development or redevelopment to aSSure that access impacts are meaningfully
addressed, correlated to actual parking demand, and provide potential for generating a
revenue source for future parking through a parking fee-in-lieu option.
a Promote employer and/or developer-based initiatives to encourage employee or
resident use of alternative travel modes.
. As development or redevelopment occur, explore the feasibility and applicability of parking
management program strategies including, but not limited to, parking and transportation
coordination, signage, permitting, and enforcement.
o Explore codifying 'Guiding Principles for Parking Management' as part of the City Code.
a Explore establishing parking management zones with operating principles and an
implementation framework based on usage and desired economic development.
a Explore reserving on street parking for high parking turnover land uses.
Date Recei'4eO;~g.14 0116
Planner: MEM
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Transportation Chapter
August 19, 2011
o Explore adopting the 85% Rule' to facilitate/direct parking management strategies.
o Explore establishing a parking manager and advisory committee to oversee parking
program implementation and review.
o Explore developing incentives for private development of publicly available parking
including, but not limited to, height/density bonuses, permit fee waivers, impact fee
waivers, supply/revenue agreements, and property tax abatements.
o Explore monitoring parking utilization continuously and periodically; and conducting
parking inventory analyses.
Riverfront Multi-Use Path
Extension of the regional riverside multi-use path system through Glenwood has been a community
transportation and open space planning goal for many years. Plans prepared by Springfield and its
partners have set forth visions for connecting Glenwood to Eugene, downtown Springfield, Dorris Ranch,
Buford Park, and beyond. 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.
The 2011 Draft Community Needs Analysis of Willamalane's update to their Parks and Recreation
Comprehensive Plan reports that expansion of the walking/bicycling path system was ranked as the
most important project Willamalane should pursue by the community.
This Chapter includes policy direction and implementation strategies to make the vision a reality as
redevelopment occurs. The policies are intended to ensure that the public can easily access the path
and walk, stroll, jog, run, cycle, or skate along the river to benefit from unique vantage points, water
quality and native habitat areas, recreational opportunities, and the adjacent built environment. This
path is intended to provide recreational opportunities and bicycle and pedestrian commuter options in
addition to the safe, bi-directional pedestrian and bicycle facilities in Franklin Boulevard and McVay
Highway, which are required by State law. While this section focuses on the multi-use path itself as a
transportation facility, further policy direction is provided regarding the open space on either side of the
multi-use path in the Open Space Chapter.
Objective:
Develop a multi-use path along the Willamette River in Glenwood from 1-5 to the southern tip of
Springfield's Urban Growth Boundary so that the multi-use path strengthens physical and visual
connections to the river and supports recreational uses and bicycle/pedestrian commuters along the
riverfront.
1 The 85% Rule is a measure of parking utilization that acts as a benchmark against which parking management decisions are
based. Within the parking industry, it is assumed that when an inventory of parking exceeds 85% occupancy in the peak hour,
the supply becomes constrained and may not provide full and convenient access to its intended user. Once a supply of parking
routinely exceeds 85% occupancy in the peak hour, the 85% Rule would require that parking management strategies be
e\laluated and/or implemented to bring peak hour occupancies to a level below 85% to assure intended uses are conveniently
accommodated.
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August 19, 2011
Policies & Implementation Strategies:
. Comply with Federal, State, and local water quality standards in locating and aligning the path
while taking advantage of vistas and site opportunities to meander and enhance the diversity of
the path experience.
o Partner with property owners and private developers to dedicate to the public right-of-
way or easements as annexations and/or development occurs.
o Consider planned future bicycle-pedestrian river crossings between Glenwood and
Downtown, Glenwood and West D Street, and Glenwood and Dorris Ranch/Buford Park
in aligning the path.
o Preserve existing trees and other riparian habitat features to the maximum extent
practicable.
. Partner with Willamalane Park and Recreation District, property owners, and private developers
to fund, design, and construct the path.
o Include a nighttime lighting strategy to support evening activity and for safety and
security on the path that is sensitive to adjacent uses and functions, including natural
areas, native habitat, and protection of the dark night sky.
o Use suitable techniques to reduce user conflicts, such as a striped or vegetated center
lane or designing the path so that it is wide enough to permit bicyclists or skaters to
pass pedestrians at a comfortable distance.
o Incorporate short-duration stop facilities, such as places to sit, historic and ecological
interpretive kiosks, water quality features, water fountains, and public art, as supportive
components of the path that provide space for groups of people to gather without
restricting or conflicting with travel along the path.
. Provide frequent, convenient, and direct public bicycle and pedestrian access points to the path.
o Design access paths from interior locations on the Franklin Riverfront no less frequently
than the northern terminus of north/south streets.
o Design access paths from interior locations on the McVay Riverfront that, on average,
are no more than a half mile apart.
. Partner with Lane County to provide future path connections outside of the Springfield UGB
towards Buford Park, the Lane Community College basin, and 30'h Avenue.
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Open Space Chapter
Introduction
The land Use and Transportation Chapters create future land use patterns in the Glenwood Riverfront
and establish a network of roads, multi-use paths, and open spaces designed to interconnect and
provide comfort, mobility, safety, and access to the river. The Open Space Chapter supports these other
Chapters by providing policy direction for a contemporary community vision for the Glenwood
Riverfront. Implementation of these policies will improve public connections to the Willamette River;
establish inviting public spaces such as parks, plazas, and multi-use paths; restore, protect, and enhance
the ecological functions and economic benefits of Glenwood's natural resources; identify potential risks
from natural hazards and protect from those hazards; and increase public awareness and appreciation
for these natural resources.
In the context of the Glenwood Refinement Plan, open space is synonymous with green space, including
natural resources, stormwater management facilities, and parks. The Open Space Chapter applies to the
area of Glenwood referred to as the 'Glenwood Riverfront', which includes approximately three miles of
Willamette River frontage and is comprised of land on either side of Franklin Boulevard and McVay
Highway extending from the I-S Bridge to Springfield's south urban growth boundary in Glenwood, as
depicted in Figure 1. The Glenwood Riverfront and the connected Glenwood Slough present a rare
opportunity to develop an open space system that integrates the restoration, enhancement, and
protection of natural resources that benefit fish and wildlife habitats, with the provision of storm water
infrastructure from natural drainage and man made development that helps support the development
and redevelopment envisioned in this Plan, and enables these resources and facilities to co-exist and be
enjoyed by people on a day-to-day basis.
There are several Statewide Planning Goals associated with the use and protection of open space in the
Glenwood Riverfront: Goal S, Natural Resources, Scenic and Historic Areas and Open Space; Goal 6, Air
Water and land Resources Quality; Goal 7, Areas Open to Natural Hazards; Goal 8, Recreational Needs;
and Goal 15, Willamette River Greenway. Implementation of the policies in this Chapter ensures that
development of the Glenwood Riverfront meets Statewide Planning Goals while also making the area
inviting to the public, preserving and enhancing the natural qualities of the riverscape', and providing
areas for recreation, leisure, and stormwater treatment.
All types of open space, including riparian areas, wetlands, hillsides, and park and recreation spaces,
provide numerous intangible benefits for urban locales that increase desirability and property values of
those urban areas. In areas such as the Glenwood Riverfront that are planned for dense, mixed-use
development, the presence and accessibility of open space are even more vital to successful and
desirable development. The presence of well-designed and integrated open space in the midst of dense
urban development mitigates much of the impact of density on the residents, visitors, and the
environment. Open space provides places for recreation; protects natural resources and fish and
1 A view of a river and the land surrounding or adjacent to it.
I Page 1 of 15
Date Received:-4 {I, II
Planner: MEM
,-
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Open Space Chapter
June 21, 2011
wildlife habitat; ameliorates the increase in both water and air temperatures due to urbanization; allows
for treatment and management of stormwater through compatible water quality treatment facilities;
and reduces both air and noise pollution. Open space offers an opportunity to rebuild or maintain a
healthy and functional tree canopy. Trees in the urban environment provide many benefits, including
improvement of air quality and reduction of carbon dioxide. Tree canopies help sustain and renew the
hydrologic balance by intercepting and retaining rainfall, and through evapotranspiration. By planning
for natural resource conservation, stormwater management, off-street bicycle/pedestrian paths, and
parks in a coordinated manner, and by co-locating these functions within the planned open space areas,
Glenwood Phase 1 aims for an efficient use of the land, thus increasing the amount of land available for
other urban development needs.
Glenwood Riverfront redevelopment presents several opportunities for maximizing the efficiency and
benefits of open space. The riparian area along the Willamette River and other open space preservation
will allow for utilization of unique natural resources in the urban core and provide a meaningful
connection for the population to defining characteristics of the region. Incorporating a network of linear
zones of riparian areas and parks along the riverfront defines the different characteristics of the
transition from a natural to a built form. Each linear zone has its own identity, use types, and
development potential, thereby connecting the river to the urban development.
The extent and health of the riparian area in the Glenwood Riverfront have decreased over the years,
due to: invasive plant species; and the encroachment of urban development and artificial barriers, such
as riprap armoring and fill that has reduced the ability for the riparian area and river to disperse water,
soil, and nutrients through the floodplain, but there is potential for restoration. The existence of Island
Park, as well as the Eastgate Woodlands, the West D Street Greenway, and Millrace Park along the
opposite shore of the Willamette further leverages the value of the riparian green space, providing for
more habitat connectivity and hydrologic benefits. At the same time, the views from these areas toward
a more urbanized Glenwood Riverfront will be mitigated by a protected and restored riparian area along
the Willamette River that is part of a linear park. In addition, there are several opportunities to leverage
the value of open space in the Glenwood Riverfront with surrounding, established development. A new
bicycle/pedestrian bridge connecting the Springfield Downtown area and the Glenwood Riverfront, as
depicted conceptually in the Transportation Chapter, will provide expanded commercial opportunities
for both areas, as well as enhanced recreational use of all the surrounding open space.
The use of identified park blocks that extend from Franklin Boulevard to the proposed riverfront street
will also introduce the value of the riparian area to the high-density residential mixed-use development
in the Franklin Riverfront. The park blocks will extend many of the benefits of both the natural
environment and neighborhood desirability that residents and visitors to the area will enjoy in the
Franklin Riverfront.
Given the opportunity presented in the Glenwood Riverfront to interrelate the various types of open
space, the Open Space Chapter consists of sections dedicated to Natural Resources (wetlands, riparian
areas, flood plains, and hillsides), Parks, and Stormwater Quality Management. Each section includes a
Page 2 of 15
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Open Space Chapter
June 21, 2011
distinct set of objectives, policies, regulatory protections, implementation strategies, and associated
discussion topics. Nevertheless, each section identifies strategies to interconnect their functions and
values in the Glenwood Riverfront.
Natural Resources
Riparian Areas and Wetlands
One of the most valuable components of a river or slough function is the riparian area, which includes
the stream bank and surrounding areas that border their channel. It is within this riparian area that the
many complex biological interactions take place. The riparian area acts in concert with the surrounding
natural and man made ecosystems. Changes within a river or slough will impact the physical, biological,
and chemical processes occurring within this corridor. Rivers or sloughs normally function within
natural ranges of flow, sediment movement, temperature, and other variables. When development and
riparian degradation go beyond the tolerable ranges of these variables, the delicate balance may be lost.
Maintaining and restoring the natural vegetation within the riparian area is essential to stabilize the
riverbank and to shade the riverbank to keep the water temperature cool. A stable riparian area helps
modulate stream flow, mitigate riverine flood risk, and filter runoff. The riparian area also stores water
and provides a unique habitat for both aquatic and terrestrial plants and animals. Providing and
protecting an adequate vegetated setback along the river and slough is fundamental for meeting
federal, state, and local regulations that protect water quality and endangered species habitat.
While not constituting sizeable acreage, two local significant wetland areas have been inventoried in the
Glenwood Riverfront. One wetland is identified in the westerly end of the Franklin Riverfront; the other
identified wetland is found in the southerly end of the McVay Riverfront, as depicted in Figure 2.
Additionally, the Willamette River and its banks are inventoried as part of the Nationa' Wetland
Inventory and are considered significant wetlands. Wetlands are uniquely productive and valuable
ecosystems and provide a wide range of ecological, social, and environmental functions. Otten limited
in size, they occur throughout Oregon and are among the most biologically productive and species-rich
habitats in the state. Wetlands are habitat for plants, animals, invertebrates, fish, and fungi. They store
floodwaters, maintain base flows, and recycle nutrients and chemicals while providing opportunities for
recreation, education, and aesthetic experiences. The beneficial functions of a wetland are physically
and biologically related to the health of the riparian corridor. The preservation of wetlands will also
provide green space for the Glenwood Riverfront and may provide additional useful functions for urban
development, such as stormwater runoff management and/or compatible water quality treatment.
The current regulatory setting includes federal requirements, such as the Clean Water Act and the
Endangered Species Act, as they apply to the Willamette River and the jurisdictional wetlands. State
requirements include the Statewide Planning Goal for the Willamette Greenway and the Department of
State Lands regulations for riparian areas and wetlands.
Statewide Planning Goal S requires all significant wetlands and riparian resources to be protected. The
Local Wetlands Inventory and Riparian Corridor Assessment for the Glenwood Area of Springfield,
A J I J II Page 3 of lS
Date Received:~
Planner: MEM
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Open Space Chapter
June 21, 2011
Oregon, February 10, 2010 updated these inventoried natural resources for all of Glenwood. As
depicted in Figure 3, there is an existing 7s-foot riparian setback from the top of bank along the
Willamette River and a 50-foot setback from top of bank along watercourses in Glenwood that are
shown on Springfield's Water Quality limited Watercourse Map. Wetland setbacks are 25 feet from the
delineated wetland boundary.
For a long time, the community has envisioned a riverbank in Glenwood that can be viewed and
accessed by the public. Glenwood planning efforts dating back to the 1980s have consistently
recommended riverbank restoration along the Glenwood Riverfront. This vision has been reiterated
throughout this refinement planning process. Springfield is following the best scientific approach known
at the time this Plan was written in recommending policy direction for riparian restoration. The
recommendations are intended to improve the quality of the riverbank for the public and adjacent
development and are in line with examples of existing healthy riparian edges along the Willamette River
in the Glenwood. The recommendations only apply to the existing riparian setback along the Willamette
River, and the policy direction is not an attempt to remove potentially developable acreage in the
Glenwood Riverfront. Implementation of these recommendations is not outside the normal
development review process.
An example restoration diagram (Figure 6) shows the preferred form to achieve the benefits of riparian
function within the existing natural resource reserved areas (75' setback) along the Willamette River.
The example restoration plan for riparian setback planting and water quality above the Ordinary High
Water line is consistent with the findings of the City of Portland Willamette Riverbank Design Notebook,
and the subsequent River Plan/North Reach Proposed Draft and the Planner's Guide to Wetland Buffers
for Local Governments, published by the Environmental Law-Institute. Scientific research by Oregon
State University and the Tennessee Valley Authority in riverbank erosion and stabilization support this
combination of vegetation and slope management for riparian setbacks. This research finds that
vegetative restoration (Figure 5) provides natural bank stability at the lowest possible cost. In March
2010, the Oregon Department of Environmental Quality produced a cost estimate for riparian
restoration that establishes a per acre cost range for Springfield that equates to an average cost under
$50 per linear foot of bank. Oregon Department of Transportation construction cost estimating tables
from April 2011 and analysis by Clean Water Services of stream restorations support this cost estimate.
Incorporating compatible stormwater treatment within the riparian setback can reduce site
development costs further and enhances the value of the preferred streambank restoration.
Statewide Planning Goal 15, Willamette River Greenway, requires a greenway boundary of 150 feet
measured from the ordinary low water line, which allows development to occur as a discretionary use.
Within this boundary, a Greenway Setback line is also required to delineate where only water-
dependent and water-related development may occur, such as boat ramps, multi-use paths, and viewing
areas. For much of the Glenwood Riverfront, the location of the Greenway Setback line has not been
formally established. The Implementation Strategies discussed below include establishing a
standardized 7s-foot Greenway Setback line in the Glenwood Riverfront, measured from the top of
bank concurrent with the existing riparian setback, as depicted in Figure 4. Formally establishing the
Page 4 of 15
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Open Space Chapter
June 21, 2011
Greenway Setback Line in the Glenwood Riverfront will reduce uncertainty and provide predictability in
achieving Goal 15 standards for public access to and views of the river, protection of fish and wildlife
habitat, providing riverine flood hazard protection, restoration and enhancement of natural vegetation,
and directing development away from the river.
Objective:
Provide ample opportunities for people to access and enjoy the Willamette River and the natural
environment while complying with State and Federal regulation and providing stable riverbanks and
conserving, protecting, restoring, and establishing a diversity of riparian habitats and wetlands in order
to retain their properly functioning condition related to fish and wildlife habitat, riverine flood control,
sediment and erosion control, water quality, and groundwater pollution.
Policies & Implementation Strategies:
. Restore, enhance, and protect the riverbank and riparian and wetland areas.
o Establish a standardized Willamette River Greenway Setback Line of 75 feet from top-of-
bank for water-dependent and water-related uses consistent with the existing 75-foot
riparian setback.
o Partner with property owners, private developers, non-profit organizations, and other
agencies to seek opportunities and funding sources to acquire property and/or easements
to create a contiguous riverfront that is sensitive to natural resource function and human
interface.
o Restore, enhance, and protect the riverbank and riparian area from the ordinary low water
line to the Riparian Setback Line boundary using plants appropriate to the local urban
aquatic and riparian areas and zones, as depicted in Figure 5.
o Pursue funding for public/private partnerships to achieve riverbank re-shaping/benching,
stabilization, and riparian and aquatic habitat restoration, as conceptually depicted in Figure
6 (also see Riverfront Linear Park objective).
o Establish policy for vegetation management of riverbank, riparian, wetland, and other
natural resource areas through sustainable landscaping and controlling invasive species
based upon introducing and supporting plants appropriate to the local urban aquatic and
riparian areas and zones.
o Incorporate into the Glenwood Mixed-Use Riverfront Plan District and the Springfield
EDSPM, as appropriate, riverfront/river bank design concepts for developing an urban
river's edge along the Glenwood Riverfront that improves conditions for fish, wildlife and
people.
. Integrate natural resources, public interface/built environment, and water resources
management.
o Maintain or establish riparian habitat connectivity to the maximum extent practicable while
allowing for and managing appropriate and limited public access to the river, as well as sight
lines through the riparian area, as depicted in Figure 7.
. d.4/ ,IlL
Date Receive . I
Planner: MEM
Page 5 of 15
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Open Space Chapter
June 21, 2011
o Limit recreation within the Riparian and Willamette Greenway Setback areas to passive
activities including, but not limited to, picnicking, pedestrian activities, cycling, bird
watching, fishing, educational signing, and riverfront viewing.
o Locate a multi-use path within the Riparian and Greenway Setback areas, at the most outer
edge to the extent possible.
o Allow for Low Impact Development Approaches for Stormwater Quality Management
facilities and/or wetland educational parks that establish or restore natural stormwater
functions to be within the riparian boundary and setback, as depicted in Figures 8 and 9.
o Utilize the objectives, policy and implementation strategies listed in the Riverfront Linear
Park section of this document.
Flood Plains
The Willamette River produced annual flooding that had a major impact on development in Glenwood
until the 19S0s. Overseen by the U.s. Army Corps of Engineers, dams at Hills Creek, Lookout Point, and
Dexter were built at that time on the upper Willamette to prevent annualized flooding. Much of the
Glenwood Riverfront remains in a flood hazard area and the potential of flooding still exists during a
major flood event. The possibility of dam failure also exists. although Corps officials stress that the
likelihood of dam failure is remote. In 2004, Eugene and Springfield adopted a Multi-Jurisdictional
Natural Hazards Mitigation Plan that covers each of the major natural and anthropogenic hazards,
including riverine and urban flooding, that might pose a risk to the citizens, buildings, or infrastructure in
the area. That plan was updated in 2009 in partnership with the Oregon Partnership for Disaster
Resilience and Oregon Emergency Management. Semi-annual reviews and full updates of the plan every
five years are required by the Disaster Mitigation Act of 2000.
The Glenwood Riverfront has regulated flood plains identified by the Federal Emergency Management
Agency (FEMA) through the National Flood Insurance Program. Flood plain development is regulated by
the Springfield Development Code, in compliance with Statewide Planning Goal 7, and the National
Flood Insurance Program. The flood plains mapped by FEMA along the Willamette River were
established based on analyses done in the 1970's, with the maps becoming effective in 1985. The
Springfield Development Code is amended, as needed, to maintain currency with the National Flood
Insurance Program. At the time of adoption of this Plan, efforts are being initiated to identify areas
where flood plain studies and mapping need to be updated, such as the Glenwood Riverfront from the
Union Pacific Railroad Trestle to the Interstate-S Bridges.
Objective:
Protect private and public investment, health, safety, and welfare from riverine flooding through the
implementation of development standards that incorporate the requirements of the National Flood
Insurance Program.
Page 6 of 15
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Open Space Chapter
June 21, 2011
Policies & Implementation Strategies:
. Restore, enhance, and protect the riverbank and riparian and wetland areas from encroachment
and impact to their riverine flood control functionality during development or redevelopment.
o Initiate the update of FEMA Floodplain Maps between the Union Pacific Railroad Trestle
and the Interstate-5 Bridges.
Hillsides
Springfield's hillsides in general, and the Glenwood Riverfront's in particular (as depicted in Figure 10),
shape its public realm; contribute to the green and healthy character of the City; maintain air and water
quality and the integrity of the natural ecology; and provide aesthetic, historic, and cultural continuity.
Hillsides attract development because they offer the opportunity for distant views and provide natural
surroundings in an otherwise urban environment. While hillsides have potential private development
value, they also have a role as an environmentally sensitive public resource. Hillside protection as a
natural resource is regulated by Springfield Development Code and in the Springfield Engineering Design
Standards and Procedures Manual (EDSPM). The purpose of Springfield's existing Hillside Development
Overlay District is to allow responsible and safe development in these areas. The Hillside Development
Overlay District applies to all zoning districts where either the elevation of the land is over 670 feet, or
the slope of the land exceeds 15%. Developed hillsides can become more unstable when their
vegetative cover is disturbed, mass grading occurs, or when the surface or subsurface hydrology is
altered. Hillsides do not lend themselves to development easily; they impose development constraints
and exact added costs, both public and private. Engineering solutions can be found to mitigate these
destabilizing influences at Increased development costs. Nevertheless, manmade solutions require
maintenance, repair, replacement, or added public cost at some future time. Undeveloped wooded
hillsides provide economic value by way of the natural system services offered by stormwater
management, pollution control, and soil stabilization.
Wooded areas, regardless of their location in the urban setting, are especially valuable in the role they
play in maintaining air quality. They can act as a carbon sink, defined as an environmental reservoir that
absorbs and stores more carbon than it releases, thereby offsetting greenhouse gas emissions. Through
providing shade, wind breaks, and evapotranspiration, trees and other types of vegetation can also help
reduce energy demands and abate the heat generating effect that cities have on runoff to streams and
the climate.
Objective:
Preserve and enhance the natural beauty of the landscape by encouraging the maximum retention of
natural hillside topographic features such as open drainage ways, slope ridgelines, rock outcroppings,
vistas from and of the hillsides, trees, and other natural plant formations in order to retain the sense of
identity and image that the hillside areas now impart to Glenwood and Springfield.
Date Received:~ Page 7 of 15
Planner: MEM
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Open Space Chapter
June 21, 2011
Policies & Implementation Strategies:
. Protect hillsides, as defined in the Springfield Development Code, from degradation during
development.
o Balance hillside development with conserving and promoting public health, safety,
convenience, and general welfare by mimicking the pre-development hydrologic regime
and managing soil stability incurred in the adjustment of the topography to meet
development needs.
o Use the best accepted design, architecture, landscape architecture, and civil engineering
principals to preserve, enhance, and promote the existing and future appearance and
resources of hillside areas.
o Collaborate with property owners and private developers to preserve the viewshed and
natural value of hillsides by recording conservation easements, soliciting voluntary land
donation or acquisition through land trusts and other non-profit environmental
organizations, or utilizing conservation easements to restrict development on portions
of particular hillside areas.
Parks
Parks that are safe, attractive, and well-maintained increase the value of nearby development. They
also provide economic benefits to homeowners, local governments, and developers. Parks can also
support ecological functions by regulating ambient temperatures, filtering air, reducing noise,
sequestering carbon, and attenuating stormwater runoff. Further, parks create opportunities for people
to gather formally or informally to pursue recreation, leisure, and social activities. Living close to parks
and other recreation facilities stimulates higher physical activity levels, greater time spent outdoors, and
an elevated sense of wellbeing for both adults and youth, and promotes citizens' connection to and
sense of ownership and pride in their community.
Glenwood has a long history of providing park and recreation opportunities. James Park was dedicated
in Glenwood as the first park in the Willamalane Park and Recreation District (Willamalane) soon after
the District's formation in the 1940's. However, it is generally recognized that as development and
population density increases, additional parks are needed, especially in the Glenwood Riverfront, as
identified in the existing Glenwood Refinement Plan, the Wi llama lane Park and Recreation
Comprehensive Plan, and the Glenwood Specific Area Plan. The Glenwood Riverfront provides a
significant opportunity to meet the parkland need for existing and future residents and workers in
Glenwood-as well as the public at large-as Glenwood redevelops. Phase 1 acknowledges parks as an
amenity, a critical piece of urban infrastructure, and an opportunity to enhance natural resources and
stormwater management and have a positive financial effect on nearby property values.
This Plan includes policies to ensure that the redevelopment of the Glenwood Riverfront into a
significant, new mixed-use neighborhood will be supported and enhanced by the presence of and access
to nearby parks and open space. It is important to provide parks that will make the Glenwood area
attractive to families with young children, to the aging population, and to other segments of
Page 8 of 15
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Open Space Chapter
June 21, 2011
Springfield's existing and future population. The policies in this Plan were developed in collaboration
with Willamalane Park and Recreation District staff and are supported by research findings on the value,
design, and use of neighborhood urban parks in the context of high-density mixed-use development.
For instance, parks recommendations take into consideration the community's prioritization of the most
needed outdoor recreation features listed in Willamalane's 2011 Draft CNA for the update to their Park
and Recreation Comprehensive Plan, including outdoor water playgrounds and riverfront access points
(tied for first) and community gardens (ranked second).
The Plan acknowledges that parks are not just highly desirable and essential amenities, but are also
critical urban infrastructure. Well-designed and located parks can also provide multi-functional spaces
where opportunities to enhance natural resources and stormwater management can occur. Setting
aside land for parks will thus accommodate particular infrastructure development -such as stormwater
management-in the public realm, thus relieving the need to provide such facilities on the development
site. To achieve these ends, Plan policies require designation of sufficient parkland acreage to
accompany future residential mixed-use development, development of neighborhood urban park
blocks, and development of a linear park with a multi-use path along the Glenwood Riverfront to be
incorporated into redevelopment plans.
Neighborhood Urban Park Blocks
Research on transit-oriented development has revealed that a primary driver of resident satisfaction
with their dense, built environment is access to high quality parks and other forms of open space that
provide visual and physical relief from the built environment. The Willamalane Park and Recreation
Comprehensive Plan speCifically identifies the need for park and recreation facilities in coordination with
increased residential density and nodal development in the Glenwood Riverfront. The 2011 draft
Community Needs Assessment (CNA) associated with an update to the Willamalane plan mentions that
the development of c1ose-to-home neighborhood parks was identified as the third (out of seven) most
important projects for Springfield. In addition, Springfield's Residential Land and Housing Needs
Analysis directs the designation of at least seven gross acres of high-density residential land for
public/semi-public uses to support a minimum of 21 needed gross acres of land designated for high-
density residential uses in the Glenwood Riverfront. This public/semi-public land allocation will provide
public open space for the higher density development and regional/metropolitan open space needs, as
well as any needed public/semi-public facilities, including, but not limited to, local and state government
facilities, schools, hospitals, and non-profit organizations.
Neighborhood urban park blocks in the Franklin Riverfront are intended to make the economic, social,
health, and environmental benefits of neighborhood parks available for residents and workers of
surrounding mixed-use development, as well as the general public. The park blocks also aim to create a
complementary situation where residents, employees, and visitors have access to natural light and
green space, and, in turn, the park space is activated by nearby residents and commercial activities,
adding vitality, excitement, and safety to such spaces. The park blocks, which are bordered by north-
south streets are essential for providing continuous physical and visual connections from Franklin
Date Rece\\Il!ld:.3{1 III ..ge 9 of 15
Planner: MEM
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Open Space Chapter
June 21, 2011
Boulevard to the Willamette River, and they are a key component in helping to develop district identity,
serving as a recognizable centerpiece of the neighborhood, and a focus for activities. In fact,
Willamalane's 2011 Draft CNA for the update to their Park and Recreation Comprehensive Plan states
that parks that have ample street frontage and good visibility tend to be more heavily used and suffer
less abuse and vandalism than parks that are 'hidden' by development. The park blocks will be an
attractor for visitors and will provide usable recreational spaces for leisure activities and gatherings that
may relieve user pressure from the more sensitive natural area along the river. Furthermore, and
because of the Franklin Riverfront's terrain, the park blocks provide options for stormwater
management and opportunities to raise public awareness about the relationship between stormwater
management and natural resource protection. Due to design factors associated with achieving this
array of functions and values within the park blocks, a minimum width of 150 feet will be required for
each park block.
Objective:
Provide centrally located and adequate public park blocks to serve residents of High-Density Residential
Mixed-Use development in the Franklin Riverfront and the general public, as an essential quality of life
attribute that provides a visual and physical connection between Franklin Boulevard and the Willamette
River and that also may be used for stormwater management.
Policies & Implementation Strategies:
. Collaborate with Willamalane, property owners, and private developers to locate park blocks
extending north from Franklin Boulevard's access lanes to the riverfront street between the
northern extension of Henderson Avenue and McVay Highway, as conceptually depicted in
Figure 11.
o Size the park blocks to compatibly meet recreation, pedestrian connectivity, and
stormwater management needs, at a minimum 150 feet wide from face of curb to face
of curb.
o Consider park user safety when designing stormwater management facilities in the park
blocks.
o Balance the space and configuration needed for functional, attractive, and educational
stormwater management facilities with the space and configuration needed for
functional, attractive, and educational active and passive park space.
. Partner with Willamalane to ensure that the park blocks are designed to be safe, attractive,
comfortable, and convenient to access for a wide range of potential users; to meet a variety of
active and passive recreational needs throughout the year; and to be adaptable to changing
needs and uses of surrounding buildings, as conceptually depicted in Figures 12, 13, and 14.
o Provide appropriate pedestrian circulation to, through, and around these public open
spaces, including, but not limited to, walkways, pathways, and sidewalks buffered from
vehicular traffic.
o Create unique identities for public open space areas including, but not limited to,
featuring distinctive design elements in seating, lighting, paving, interpretive kiosks, and
public art.
Page 10 of 15
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Open Space Chapter
June 21, 2011
o Utilize a combination of maintenance friendly hard-surfaced areas, landscaping, and
vegetation that is adapted for survival and growth in the Eugene-Springfield area and/or
where required, listed in the Springfield EDSPM.
o Provide areas to congregate and socialize formally and informally by utilizing amenities
including, but not limited to, park furniture, picnic tables, benches, seating areas,
restroom and maintenance facilities, and opportunities to accommodate outdoor
entertainment, public gatherings, and exhibitions/display areas.
o Consider accommodating additional outdoor seating areas for cafe patrons along the
park blocks street frontage and/or food kiosks or pushcarts within the park blocks.
o Provide active recreational opportunities for exercise or informal, unstructured, non-
organized recreation activities, including, but not limited to, informal play areas for
outdoor games and pet and children's play areas.
o Provide passive recreational opportunities for picnicking; strolling and viewing; sitting,
reading, and passive games.
o Consider establishing community garden space.
Riverfront Linear Park
The Willamalane Park and Recreation Comprehensive Plan identifies a need for outdoor recreational
facilities in Glenwood, including a multiuse riverfront park and a multiuse path/linear park along the
Willamette River. linear parks provide public access to trail-oriented activities, which may include
walking, running, bicycling, and skating, and they also may provide neighborhood recreation facilities
where adequate space is available. Another key component of linear parks is a corridor of open space
planned for environmental or scenic protection. A linear park that provides tree cover, wildlife habitat,
and riparian buffers can reduce stormwater runoff and the potential for localized and riverine flooding,
protect water quality, link habitat fragments, and preserve biological diversity along watercourses.
This Plan envisions a continuous linear park along the Glenwood Riverfront, from the Interstate-S
bridges to the southern tip of Springfield's Urban Growth Boundary, as conceptually depicted in Figure
11. In most places its width will approximately coincide with the 7S-foot wide Riparian and Willamette
Greenway Setback area. In the Franklin Riverfront, where there is greater distance between the river
and the proposed street grid, the linear park may be as wide as approximately 1S0 feet from top of
bank. The proposed multi-use path passing through the linear park will be a critical link in the regional
path system connecting Eugene, Springfield, and, eventually, the Howard Buford Recreation Area and
Mount Pisgah. The alignment of the linear park along the proposed east-west Riverfront Street is
intended to bring high visibility and public access to the park. Willamalane's 2011 Draft CNA for the
update to their Park and Recreation Comprehensive Plan states that parks that have ample street
frontage and good visibility tend to be more heavily used and suffer less abuse and vandalism than parks
that are 'hidden' by development.
Date ReceIVed: 1111 II
Planner: MEM
Page 11 of 15
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Open Space Chapter
June 21, 2011
Objective:
Establish a linear park with a multi-use path along the Willamette River in the Glenwood Riverfront that
is sensitive to riparian areas, wetlands, and scenic values and appropriate in size and type for the
surrounding urban environment in order to: bring people and activity to the riverfront; augment the
existing natural and recreational Willamette River open space corridor in the region; promote tourism;
and enable recreational/educational appreciation of Glenwood's natural resources and open
space/scenic areas.
Policies and Implementation Strategies:
. Collaborate with Wi llama lane and others as appropriate to develop river edge variety along the
linear park corridor, as conceptually depicted in Figures 11 and 15, and protect lands within the
concurrent Riparian and Willamette Greenway Setback area while integrating a variety of
passive recreation spaces with abutting natural resources and associated riparian protection and
enhancement measures and stormwater management features.
o Provide appropriate bicycle and pedestrian circulation, including pedestrian paths and a
multi-use path, to and through public open space areas for a wide range of potential
users.
o Create scenic river overlooks and viewpoints with safe public access that include
clearings and long views through the concurrent Riparian and Willamette Greenway
Setback areas in the vicinity of the intersection of the north-south streets and the park
blocks with the riverfront street in the Franklin Riverfront and no more than one-half
mile apart in the McVay Riverfront. Provide amenities including, but not limited to,
benches and seating areas along the multi-use path where appropriate.
o Create multiple viewsheds through the riparian area at various elevations by utilizing a
mix of understory and canopy vegetation, including the clustering of trees, to discourage
illegal activities and to visually connect the development areas with the Willamette
River and the remainder of Springfield.
o Require development and/or redevelopment to avoid restricting access to the
Riverfront Linear Park and to avoid or minimize obstruction of scenic views of the
Willamette River corridor.
o Provide opportunities for passive recreation including, but not limited to, picnicking,
sitting, reading, and wildlife viewing by utilizing features such as park furniture, picnic
tables, benches, seating areas, and restroom facilities.
o Create unique identities for the public open space including, but not limited to featuring
distinctive design elements in seating, lighting, paving, interpretive kiosks, and public
art.
o Establish an educational component for the linear park to include the natural and
cultural history of the Glenwood Riverfront.
o Utilize a combination of hard-surfaced areas, landscaping, and natural vegetation that is
adapted for survival and growth in the Eugene-Springfield area and is maintenance
friendly.
Page 12 of 15
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Open Space Chapter
June 21, 2011
o Utilize riverbank stabilization strategies that enhance the river and riverbank
ecosystems. Ensure that riverbank plantings provide habitat value while preserving
views.
o Integrate a variety of vegetation, above and below the top of bank, which supports the
riverbank and riverbank habitats.
o Utilize riparian setback area for stormwater management and water quality treatment,
as described in the Stormwater Quality Management section of this Chapter.
Stormwater Qualitv ManaRement
Springfield's Stormwater Management System includes the structures, facilities, and practices utilized by
the City and/or a development to control and manage the quantity and quality of groundwater
discharges and surface water run-off, including stormwater run-off, non-storm generated run-off, and
floodwaters. Rather than simply piping collected storm water from developed areas and discharging it
directly into the Willamette River, the most cost-effective strategies for managing the quality of the
runoff are to direct runoff through vegetative treatment approaches that are incorporated into the
urban landscape. Considering the opportunities for using public open space for achieving stormwater
quality, this Chapter discusses Stormwater Quality Management while the Public Facilities and Services
Chapter discusses Stormwater Collection and Conveyance Management.
The purpose of stormwater quality management is to mitigate the negative effects of urbanization
runoff on the hydrologic cycle. Urbanization of a watershed increases pollutants such as oil, litter, silt
from construction, and many types of heavy metals and chemicals. These combined pollutants can have
severe impacts on receiving waters for vegetation and wildlife. In addition, there are further negative
impacts on water quality such as increased water temperature, total volume of runoff, and how quickly
that runoff reaches the receiving waters. Increases in flow and volume also result in increased erosion
and can result in new or increased downstream localized and riverine flooding.
Through the Federal Clean Water Act, there are several requirements that must be met by
municipalities for stormwater runoff within their boundaries. The Oregon Department of Environmental
Quality administers these requirements using a lederal Municipal Separate Storm water System (MS4)
Permit issued to Springfield. This Permit allows Springfield to discharge runoff from the public
stormwater system to both the McKenzie and Willamette Rivers. As a result of these requirements, all
new and redevelopment sites must address Springfield's stormwater requirements for volume control,
flow duration, and on-site water quality, as described in the adopted stormwater management policy
contained in Springfield's Stormwater Management Plan. As development and redevelopment occur,
developers will be required to consider and implement all appropriate on-site opportunities and options
to minimize localized flooding, pollution, and increases in flow to downstream receiving waters. Where
these objectives are not attainable, mitigation based upon an analysis of the cumulative drainage
impacts of the development on affected downstream owners will be required. One way of achieving
these policy objectives is by applying Low Impact Development Approaches (UDA).
..fIlii
Date Rece\ved:~3 0115
Planner: MEM
1-
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Open Space Chapter
June 21, 2011
lIDA includes innovative stormwater management approaches with a basic principle that is modeled
after nature: manage stormwater runoff on-site, at its source, with the goal of mimicking
predevelopment hydrology by using design techniques that infiltrate, filter, store, evaporate, and detain
runoff. The result is a hydrologically functional landscape that generates less surface runoff, less
pollution, less erosion, and maintains existing hydrology of natural areas and rivers. lIDA has numerous
benefits and advantages over conventional stormwater management approaches by directing
stormwater towards small-scale systems that are dispersed throughout the site with the purpose of
managing water in an evenly distributed manner. Opportunities to apply lIDA principles and practices
are plentiful since any feature of the urban landscape including not only open space, but also rooftops,
streetscapes, surface parking lots, sidewalks, and medians can be modified to control runoff and/or
reduce the introduction of pollution. These distributed systems also allow for downsizing or elimination
of stormwater ponds, curbs and gutters, and a reduction of piping, thereby saving on infrastructure and
storm conveyance costs. The technologies are tested, proven, and have been used successfully for
many years in other parts of the Eugene-Springfield area, as well as in dense, urban locations in the
United States such as Seattle, Portland and Chicago and numerous locations in Europe and Asia.
The Glenwood Riverfront is well suited to this approach to stormwater management. The soils in the
area tend to have a high infiltration capacity and this has allowed Glenwood to develop to its current
state without any large-scale stormwater infrastructure being necessary. Installing a traditional
stormwater system consisting of above and below ground conveyance that would discharge into the
Willamette River would be prohibitively expensive. Such a traditional system also requires a large
footprint of land that could be utilized for additional development, and once installed, is expensive and
difficult to maintain for both function and pollution reduction. lIDAs are usually fully integrated into
required landscaping and setback areas and as such do not normally require any additional maintenance
above/beyond the existing requirements for a developed area.
Objective:
Use lIDA stormwater elements to replicate the hydrologic cycle processes that have been lost in urban
areas to manage stormwater discharges; integrate site development with the public infrastructure,
transportation facilities, proposed park blocks, Riparian and Willamette Greenway Setback area; and
integrate Springfield's Storm water Management Plan standards with the anticipated high intensity
development levels in the Glenwood Riverfront.
Policies & Implementation Strategies:
. Ensure adequate Stormwater Quality Management planning, emphasizing the natural
hydrologic process that minimizes negative impacts on water quality, flow volumes, duration,
and quantity resulting from development and redevelopment.
o Capture the first one inch of rainfall in a 24-hour period through the use of on-site lIDA
techniques.
o Utilize techniques that slow and retain stormwater runoff on-site, in order to reduce
peak storm flows.
Page 14 of 15
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Open Space Chapter
June 21, 2011
o Reduce impervious surfaces by using techniques including, but not limited to,
permeable surfaces, green roofs, and narrow streets.
o Utilize techniques for filtering contaminants from surface runoff before it enters the
Willamette River to protect and enhance water quality.
o Utilize the Riparian Setback for stormwater filtering, groundwater recharge, and
overland sheet flows, where possible.
o Utilize planting standards found in the Springfield EDSPM for vegetated treatment and
riparian areas.
o Integrate innovative storm water management systems into the site design by using
green roofs, the incorporation of pervious surfaces, and other systems that reuse
stormwater to irrigate landscape plantings.
o Utilize portions of the park block areas for treatment of storm water runoff from
adjacent streets and conveyance of treated stormwater to management and/or water
quality treatment areas.
o Initiate a Stormwater Capital Improvement Plan project for improving stormwater
capacity and riparian habitat along selected existing sloughs and waterways in the
Glenwood Riverfront.
o Provide requirements and incentives for green infrastructure for stormwater
management including, but not limited to: legalizing all types of green infrastructure,
particularly for downspout disconnection and rainwater harvesting through building
code policies or amendments; and establishing payment-in-Iieu for developing off-site
and nearby neighborhood or semi-regional stormwater management facilities.
Date Reee\ved:~
Planner: ME.N!
Page 1S of 15
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Phase 1: Hillside Parcels
Terrain model derived from 2009 LiDAR data
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Figure 11
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