COMPREHENSIVE PLAN Willamalane Park and Recreation District Springfield, Oregon Board of Directors Joyce Lane. _ _ Chairman Jay Penning Director Elise Myers ...............••.....••......•..........Director Terry pickering............•........................Director Denny Sperry .............•.......•.......•.......... Director George Steinberger........•......••......•..........Director Administrative Staff Gary Walker District Superintendent Roger E. Delles Assistant Superintendent Rick L. Scott Community Relations Director Citizen Advisory Committee Kenny Bock Marsha Bock Michael E. Cross Mark McMahon Lewis Southmayd PREPARED BY: • ~~, ">-'-'--'--~ ii. :;m~ ;$'~,"""" ''-" ...~' ,', A T :E;\RS~;,"Q .,...., b o . L N).; OS'S >\;N D A S S O,C I~,'i<' ~.$%:¥.-:RS OP£N SPACE IOOAls, OBJECTIVES & POLlolE51 +C/TlZEH .......1 IMPLEMENTAnON GUIDEliNES I • ClTlz.EN INPIJl " COMPREHENSIVE PLAN II .-- - PRIOR1T1ZEO IMPlEMENTATION " ,~~ M'AOVfMEHTS O!'t:RAlIONS -'. -,~,... "'~"K' L-"""" - ......_, T EVALUATION I UPD....TE ~....-.-..-.~ ) --_.._. , _.....-.- --- 4\j411I.-DJU IJ. --- WIIa",.l.n. ".rk .nd A.crUllOn DJ.hiel $p ~ , ., ll:f ~ -8 - ~ • • ., E I b• • .s - > o ~ ~= ...J « c.. w~ "W w > ~ "(f) 2« Z ~ W ~« I ~w W 2 a: «~ c.. «~ ::2: «~ 0 :! () ~ I,..----..J I• - - Map 1 ", •• o r GEOLOGY MINERAL & AGGREGATE RESOURCES .:C:' :,·:t:~::, .;):;:;:,.- ,-,; ...; .... , '----1\i \, \ ' ",J "," Ooal , 8 "~ • • B Intrusive Rocks If~1 E~ Forma~,(~E3 Mineral &. Aggregate ReSOl.l"ces l="=l Mflefal & Aggregate ResC*"ce~ Land Use Classification , Older Alksvium . "' Uttle Bulte Volcanic Series , • Ooal • Awl( ~O. • • "• ", .; N • , n. ~ • , , , ,. ; '1'1' ,~ , ."TI, I I" "'- -tt}:' .- .. ~o' ST"• Hetro A~ Gener.l Pl.n, 1980. "Eugene East Topographic Qu!dr.ngle", 7.$ minute series, 1967, photo revised 1975, U.S. Geologic.l Survey. ·Springfield Topographic Quadrangle-, 7.5 Minute series, 1967, U.S. Geologiul Survey. , • gU.T LI.[ , /( , I ~ I I , , I I LJ , "' ~ "' "'.~ , -- 'c -' " • Ooal l.("-"'·t , .L-, U • ·V.ter Supply P,per 2018, Phte 1. • Geologic Hap of t~ Eugene-Springfield Area. Southern Wi 11.Jllette Va lley. Onglln". • U.S. Geological Survey in cooperation with Oregon St.te [nginetr, 1973. SOURtES: • ·Working Papers. flgun [I. Sand and Gr.vel , Ruoun:u- (Siind ud Gr.nt resourte anu Identified by the l.ne County Public Worts Dept .• Sept .• 1967). LCOG 1978. ,D '" " ',' " -.- , • , •. • • • , • , ..... IH "Cf • AWl< ltD. "N" Sf , • S ".II!..It. (\ MIDDLE FORK WILLAMET\~~ER......... .....- < • • , • "GO r " , • • , '~ I o --, ,.. "- ~ c c '" c • '" 0: .. .... E • < Ec - e ., IJ cw ·0 c ... '" • •0 '" c • < :5 .. 0 ?: z " , < E E 0 u '" ·• '" , "Ci ":EIJ •< < •"- • .. v•~, •~ o~ CO2 C1l~~ .... ., c Zz <:2 ...J!< a..i:! uUJw>~ - zC/)< Z'"UJ~ I"-UJ~ a::~ a.. <~~ 0=U~ SOURCES: [ugene·Springfield Area: • "Flood Haunls Boundtry Mips·. Federal Insurance Aa.lnlslratlon. McKenzie River: • Flood h.z,rd 'ntlysis completed by SlR, I private consulting finl, in 1975. SU'i)' loop Area: • Flood hiland .n.lys1s co.pleted. RtlMlnder of the Unincorporated Metro Are.: • Flood Nun:l '1WI1~is co-p1eted by K. Bilker EnglMerfng fn 1971. _ Surface Waters D 100 Year Floodplain FLOODPLAINS & SURFACE WATER Map 2 SOURCE: • Soil classification bas~d on an interpreta- tion of U.S. Soil Conservation Service Data by lCOG staff liS background inventory for the ~WOrkin9 Papers", •••••• EXTENT OF lCOG DATA N LEAST CONSTRAINTS TO DEVELOPMENT II I BEST AGRICULTURAL SOILS II k'<'r ·1 1110 IV I I GREATEST CONSTRAlNTSlO IEVElOPMENT V- VJII_ POOREST AGRICULTtRAL SOILS AGRICULTURAL SOIL CLASSES Q, M ~< < ~ C., < ·• ~ '" C .. • • Ml- e 0 • '"< E 1< - 2 .. ~U ~ - z(f)< Z~ W~Io. w'!i o::~ 0.<~~ O~() Map 3 ) ~ 0 ~ ~ , •~ • '"0 '"t ", ~ Map 0"000 m'" ",... '<; ZZ~ - z(/)< Z~W~J:Q. wli! 0::5 0..<~~ 0=O~ ~ • • • • III '" -. I- , • 0< E • - 2 ;; U •w ·0 • ,.. '" • •C '" ••0< :5 .. 0 > z .~ , • EE 0 u '" ·• '" , "0 •:c U ,< 0< •~ • ... ••~ • C •~ SOIL EROSION HAZARD CLASS I _ SEVERE RATNG CLASS II _ MODEAATE RATN3 "N" S L, • " '" , .~"" CU.tENNIA, , -' \ .' , Ll .. ".... H III E YlY I I, , h,I , I- I I , I A!!l!1,: " j ~ , , > • •• • · I'....' "= ;! ~,- •• I . "• D :_1 , . ><]l~ SOURCE: + • Lane Council of Governments (Interpretation for mapping by LCOG and lane County person- nel using S.C.S. So11 Interpretation Fonm OR·Soils-I). •••••••••• EXTENT OF AVALABLE LCOG. DATA 4 > ~ 'c" " ,or" " • • ~ "> •, •, MAn, ", "iI." , ". ~jO~, , , • • o ----, l _----..., IT R mr-- , =_=_~N .~-- ·• • , , \ o , N • ·• • f 01, ---~ '" CHlTEtmlAL LJ HA~OEN R 9AI £ WY 7 I~VIE\'i 4 > ~'" I • I , , ! ,, , •,,,- - 8HT i LII'!E / ( , r 6 I ,~ I• .-~ ~ ~ , iii I~ • , " I• "• ow " > ,~ • , > • • " ""-,..• " ruIJJ. Wann Water Fish Habitat ,mtWw ':,,,,f,·;i' , Salmon Spawning Habitat 'II1TI!1!!1!i1 (existing & potential) filJllJlUlll FlJ'"bElarer Habitat SOURCES: • "W111amette Greenway Wildlife Maps", Oregon Dept. of Fish and Wildlife. • "Willamette Greenway nsh and Wildlife Maps" U.S. Fish and Wildlife. Note: The Willamette and McKenzie Rivers are classified as: 1. Anadromous Fish Rivers 2. Spawning Rivers Wildlife Species: 1. Blacktail Deer 2. Beaver 3. Mountain Beaver 4. Racoon 5. Rough-skinned Newt 6. Long-toed Salamander 7. Pacific Treefrog 8. Pacific Pond Turtle 9. Western Fence Lizard 10. Gopher Snake 11. Western Racer 12. Osprey 13. Winter Waterfowl 14. Green Heron 15. Warblers 16. Piliated Woodpecker 17. Acorn Woodpecker 18. Purple Martins Wildlife Sightings Waterfowl Habitat I;,"":;:..",~,,.~# Flyways ;- ,-,,' '"~~~,\9~ Old Growth Douglas Fir d Significant Vegetation andWildlife Areas (See Text) WILDLIFE Map 5 6 Map 'iJ', ~, c '" c • '" "..l- E • co: Ec " e ., u c "'0 c ... '" • • "III c • co: :5 '"~~ "',,'~ EE0u =1 ·• ", "d •;c U , "co: •~ • ... v • oj ~c•~ VACANT LANDS UNDEVELOPED PARCELS & AGRICULTURAL USE ~ Undeveloped Parcels ( 6 ec,e min. egg,egeUone 1 l::::::::::::jAgricullural Use .,_I_Urban Service Boundary ••••• Willamalane Boundary ••••• Springfield Boundary ....... Combined Willamalane Springfield Boundary SOIJRCE: • "Vacant Lands Map", Scale: 1:24,000, Jan. I, 1979, lCOG. .'. The people who first settled in the Springfield area, the people who have populated the area since, including the people who live here now have created a built environment which directly influ- ences park and recreation development. The Willamalane Park and Recreation District is tied together with roads, walks, rails, sewer pipes, water pipes, electrical lines and telephone lines. The District is composed of a variety of land uses and further held together by a culture which is the product of a rich history. Transportation corridors create access but also barriers. Utilities which are necessary for many recreation facilities can also create usable corridors. Yet they too, can serve as a con- straint to some types of park development. This chapter inven- tories and maps the major elements of the cultural or man-made environment. Cultural Environment •History Indian Occupancy occupation by the native Indians in the Willamette River.Valley probably began with a gradual drift downward from the Northwest Territories (37,p.39). They followed the course of the river in a southward movement that resulted in the peopling of the valley in small groups of about 20 persons. Sometimes the influx of outside visitors would increase to 100 or more (4, p.8). Early contacts with white settlers were made by the KlamAth Indians who came over the mountains on the old Indian trail each fall to pick hops. According to early writings, the trail led down the north bank of the Middle Fork, probably passing through Dorris Ranch. The 1850's government records of the Cala- pooias Indians are inexact and incomplete. However, of the several treaties secured with the Calapooias in January of 1855, a dozen tribes were listed. The Winefelly, Mohawk, and Yoncalla bands, listed in the treaty, resided in the southern end of the Willamette Valley (2, p.G). The Willamette River derived its name from a tribe of Indians ~ho inhabited the lands along the stream between the Clackamas River and the Willamette Falls at Oregon City. The river was known among the Indi- ans as the "Wallamette," pronounced by them as "Wallamut," and meant "to spill or pour water" (37, p.28). The upper Willamette River valley was in- habited by three Indian tribes who lived and passed through the region: the Cala- pooias (Kalapuyan) who made the region a permanent home and the Molallas and Kala- math who regularly visited the valley and found it a "veritable garden of eden" (4, p.8l. The valley abounded in game, many varieties of blackberries, salal- berries, huckleberries, and several types of edible roots such as the wapato and camas. The Indians crushed acorns into flour and they steamed and dried the camas root (37, p.29l. INOIANB OF TRIBAL NAMES: \?~.r,i~;'~ CALAPOCIAN SUBTRIBES: 1. Winefelly 2. Mohawk 3. Chafan t:¥Tfj SIUSLAWAN 6. Siuslaw LANE COUNTY 4, Chelamela (lon[j Tom) 5. YOllcalla ~MOLALLA 7. Southern Molalla The Indian occupancy ended in 1855, when the Calapoopian Indians ceded the Wi11am- ette River area to the United States gov- ernment. The Grande Rhonde Reservation was then established for them (4, p.8). At this time white settlement and the pio- neering era had begun. According to records of 1835, the number of the Calapooia nation was estimated to have been over 8,000 divided among 17 tribes. Since they were largely nomadic, the counting of houses and villages to compute population was difficult (37,p.62). Indian artifacts found in the upper Wil- larnette area include obsidian arrowheads, manos (hand rollers used for grinding), rock scrapers, metates (flat table-like stones), and mortars (2,4) (4, p.8). Source: loy, William. "Atlas of Oregor" University of Oreyon Books, 1976. 27 Pioneer Settlers The goal of the first settlers who came to the ".oregon Country" was to reach the wil- lamette Valley. "In 1853, the first great flow of pioneers crossed the Willamette Pass from Eastern Oregon following the Middle Fork of the Willamette River to the valley below" (4, p.5). The open prairies, abundant rainfall, mild climate and easy access to the sea were the Willamette Val- ley's primary attractions. A majority of the land needed no clearing and could easily be turned by the plow as soon as a claim had been made. The Government Donation Land Claim Act caused a considerable increase in the pop- ulation of Oregon and Lane County. By law "all citizens of the U.S. over 18 years residing in the territory of Oregon at the time of the passage of the Donation Act or who became such residents on or before December 1, 1850 - who continued to reside upon and cultivate a tract for four suc- cessive years were entitled, if single men, to 320 acres and, if married, to 640 acres. Settlers between December 1, 1850 and December 1, 1853, received 160 acres if single and double that amount if mar- ried" (12, p.2). Springfield One of the early arrivals to the county was Elias M. Briggs, who in l849,Located his donation claim where the village of (Springfield) now stands, he chose as the site of his dwelling a spot convenient to a spring of water that sent up its little bubbles with ceaseless energy. A portion of the prairie where stood this fountain in due time was fenced in, the inclosure becoming known as the Springfield - hence the name of the town (11, p. 452). Springfield's pioneering epoch reached its zenith with the coming of the steamer "Re- lief", riding the December flood waters of 1851. Thereafter, the depth of the river permitting - which meant exceptional rain or melting snows increased the stream's normal flow - a few boats reached as far as Springfield. 28 The Briggses, father and son, ran a ferry across the Willamette. Until 1853, their home and J.N. Donald's small trading post were the only building on the site. How- ever, in the previous year, work was begun on a canal (the Springfield Millrace) in- tended to bring water from the Middle Fork, close by, to operate a saw and grist mill under construction .. Thereafter, a few additional settlers trickled into the area that is surrounded on three sides by low mountain ranges' deciduous growth. s6 Springfield grew slowly into a village with a future (36, p.116). The "Original Plan" of Springfield was de- veloped in the same year (1853). It was comprised of only two square blocks and was recorded as follows: "Springfield is situated in the southwest quarter of Sec- tion 35, township 17 south, range 3 west, Lane County, Oregon." All distances and locations in those days were marked off from Donald's Store. In 1854, the fol- lowing year, the first school district was established in Springfield. Water transportation on the upper Wi11am- ette was practically abandoned following construction of the railroad in 1871. The milling of lumber grew in importance, while more and more grain raised by the farmers of the countryside was fed to meat stock. Manufacturing drew an increased settlement. For a time the gold and cop- per mines discovered in the mountains to the south added to the region's prosper- ity" (36, p.116). Springfield by 1884 derived its prominence from the mills and linked with the Oregon and California railroad. Springfield became an incorporated city on February 25, 1885, and received its Char- ter on March 17, 1893 with Albert Walker serving as its first mayor. The turn of the century saw many changes occur in Springfield, some of which are noted here: .. Glenwood Springfield Springfield Island Park WEST SPRINGFIELD/GLENWOOD LOOKING NORTH CIRCA 1910 Glenwood r Willamette Heights Island Park Ballew House , .,..... .e.!4~"l:li'~_~r-"'''''~r~~~· -k.~ ... '- WEST SPRINGFIELD/GLENWOOD LOOKING SOUTH CIRCA 1910+ Photos courtesy of Lane County Museum 29 • The establishment of the First Post Of- fice inside William Laird's Drugstore. • The first bank (appropriately named "First National Bank of Springfield" was built on Main Street. • The first library was organized in 1908. • Streetcar service was inaugurated be- tween Eugene and Springfield. • Two newspapers made their debut on the scene: the "Springfield Messenger" in 1896, and the "Springfield News" in 1903. • Telephone service was instituted in 1903 with original service to a total of 38 customers. • Electricity was brought to Springfield the following year (1904) along with city water. • The first 35 miles of the McKenzie Highway were constructed, with a toll collected at McKenzie Bridge. In 1911 Springfield residents celebrated the paving of Main Street by covering it with candlewax and staging a square dance. Participants celebrated the occasion by wearing badges bearing the slogan "Spring- field Paves the Way". By 1940, Springfield had a population of 3,805 and a land area of 1.5 square miles. A mere ten years later the population nearly tripled to over 10,000 in an area of 3.5 square miles. This hefty increase in population was due primarily to the new Weyerhaeuser Plant's location in Spring- field in the 40's. In the years hence, Weyerhaeuser has become the city's largest sjngle employer. A number of attempts were made through the 50's, 60's and 70's at revitalizing the downtown. The first attempt was the "Shopper's Paradise", ar, experiment spon- sored by the Chamber of Commerce in 1957. The objective was to provide a more ap- pealing atmosphere for shoppers by remov- ing traffic from Main Street, and provid- ing amenities such as landscaping, music and benches. It proved to be quite a suc- cess, but succumbed to problems of traffic rerouting, financing for permanent facili- ties, and lack of sustained community in- terest. 30 Another effort at revitalizing the down- town area was begun in 1964. The conver- sion of the old Booth & ~elly Mill build- ings into the Big M shopping complex was expected to pump extra life into downtown, but failed to overcome the poor pedestrian access across South "A" Street. The first major downtown planning document was the "Springfield Core Area Plan", de- veloped in 1968 by the architectural firm of Lutes and Amundson. Financed by the Chamber of Commerce and the City, the plan was adopted but never implemented due to a variety of reasons. An effort at bolstering the downtown in the early 1970's was the construction of the "Spring Village" shopping center. Opened in 1973, Spring Village financially failed. The building was purchased in 1980 by the City of Springfield as the new location for the City Hall. The City Hall and Library opened in 1981 as well as the renovated PP&L Building which was origin- ally constructed in 1905. It now serves as the Springfield Museum. Historic Preservation The City of Springfield has a number of sites and structures of historic interest. As noted in Historic BUildings of Spring- field: 1980, an inventory of historic sites and structures was begun in 1979 and completed in 1980 pursuant with LCDC Goal 5, "Open Spaces, Scenic and Historic Areas and Natural Resources." A number from the inventory were designated historical land- marks. Others were termed "potential landmarks", and still others as "suggested potential landmarks". The breakdown is as follows: 1. Designated Historical Landmarks: • Springfield Depot - 575 S. A Street • Stewart House (1906) - 214 N. 2nd Street • Douglas House - 961 S. 32nd Street • Brattain/Hadley House (1884) - 1260 Main Street • PP & L Building (1905) - 550 Main Street 2. Po~ential Historical Landmarks; • The Innis House (1893) - 827 B Street • The Coffin House - 922 N. B Street • The Mill Race - constructed in 1852 • The Ebbert Memorial Church and Par- sonage (1916) - 532 N. C Street 3. Suggested Potential Historical Land- marks: • Tomseth House (1910) - 309 S. 4th Street • School (1912) - 525 Mill Street • Al Stockstad's (c. 1910) - 212-16 Main Street • Masonic Lodge (c. 1910) - 228 Main Street • Econo Sales (1921) - 326 Main Street • Stevens/Perkins (1911) - 330 Main Street • I.O.O.F. (1907) - 346 Main Street • Rev. Moore's House - 535 E Street • George Perkins House - 346 0 Street • McKlin House - 606 0 Street • Or. Rebhan's House - 448 5th Street • Built by Lepley's - 857 5th Street • Thurston Grange (1913) - 66th and Thurston Road • 660 C Street • 942 F Street • 428 5th Street • 638 6th Street • 746 6th Street • 246 7th Street • 406 8th Street • 6022 Thurston Road • 980 58th Street In the same report, a variety of methods are suggested for the preservation of his- toric sites and structures that would be appropriate to the City of Springfield .. , historic zoning, scenic easements, tax in- centives, or direct acquisition would serve the City of Springfield in the most effective and efficient manner available. The reasoning behind this assumption is; rKelly Butte . fl":" ~ , , ""... ~..., ".':: , ~~.--::~:~.: ..,":'.,; Oddfellows Building SPRINGFIELD LOOKING NORTHWEST CIRCA 1910 31 Photo courtesy of Lane County Museum all of these programs offer the City com- plete autonomy; they are the least expen- rove (even direct acquisition, though init- ially costly, can be amortized by rental or resale), they offer greater program flexibility, they have fewer legal and time consuming implications, they do not conflict with additional planning issues, they fulfill the obligation of existing plan recommendations and accomplish the objective of historic preservation. Local designated City Landmarks considered eligible for National Register of Historic Places nomination can be recommended to the State Historic Preservation Office at the discretion of the Springfield Historic Commission. The State Historic Preserva- tion Office maintains a current inventory of Historical Site and Buildings within the state but makes no state level histor- ic designations of its own. To date "historic preservation in Springfield has never achieved a large or well organized following among its citizens. As a result no substantive, mutually agreeable program of historic preservation has been present- ed to the Springfield City Council." (As stated in the Historic Buildings of Springfield: 1980). Annexations The Annexation Map (Map #7) graphically depicts where and when Springfield's growth occurred in the decades following the turn of the century. Each area re- presents ten years of growth for the city. The information for this map was supplied by LCOG's Planning and Research Depart- ment. It is interesting to note that in the period from 1910 to 1939 no new areas were annexed into the City of Springfield. This does not imply that no growth whatso- ever occurred during the period, but only that what growth or development was occur- ring was not regulated by city regulations or ordinances. In all likelihood growth did occur outside city limits, governed by much less stringent county guidelines. Before 1940 Springfield only extended from the Kelly Butte area on the west to about 21st Street on the east, and from' bet'veen "Q" Street and Centennial on the north to the railroad tracks on the south. Annex- ations in the 40's mostly extended the city east to about 31st Street. During the 1950's less than 150 acres of land were incorporated into the city. physical growth of the city was nearly 400% in the following two decades, the 60's and the 70's, and is shown in the following chart. Another interesting fact Ye", PoputatlOl'l Area (SQ. Miles) i PopJSq. Mie '940 I 3.B05 1.5 2.536.67 I 1950 10.807 3.5 3,087.71 1960 19,616 9.81 1,999.59 1970 26,874 12.39 2,169.01 ,900 41,227 12.51 3,295.52 2ti,874 19,616 1950:-- 1 _ 10,807 1980r- ------------------~ I 41.227 1970f-' ~_-~? I 1960 ~~- ANNEXATION VS. POPULATION GROWTH 32 regarding the city's growth is that popu- lation and land area of the city did not increase in even and equal increments. The graph shows that during these periods physical growth preceded population growth by a great margin. The areas lowest dens- i~y figures in recent history occurred during the 60's and only now, in the 80's, has the city through controlled growth policies promoting in-fill development, surpassed density levels that existed 30 years ago. Another interesting fact regarding past annexations, particularly relevant to the area's park and recreation services, deals \-lith annexations of land by the Willama- lane Park and Recreation District. Be- cause willamalane's independent legal au- thority was established by the State of Oregon in 1944, annexations to the City of Springfield did not mean annexation to the Willamalane Park and Recreation District. Willamalane could only annex lands through elections and voter approval independent of the city. Willamalane was not able to gain voter approval annexing lands east of 40th Street until 1978. Be- cause the city had no parks department or planning devoted to parks and recreation, the city annexed lands prior to Willama- lane annexation without any policies or ordinaces directed at providing land for future park needs. The problems incurred through these inde- pendent annexation processes indicated a need for coordinated interagency planning. The formation of the metro area Boundary Commission brought coordination and co- operation to the annexation process. Now, annexation cannot occur for new areas of growth unless mutually agreed upon by the 1) City of Springfield, 2) Willamalane Park and Recreation District, and 3) Metropolitan Wastewater Management Commis- sion. The Boundary Commission assures appropriately phased and located urban growth. Population Background The history of Springfield shows it has been a city of continual population growth. As the table below shows, the period between 1910 and 1920 was the de- cade incorporating the least population growth in the city's history since the turn of the century. The population gre~ by less than one percent during that par- ticular ten year period. The decape see- ing the largest population increase was between 1940 and 1950 when the population increased by 184 percent. The average population growth rate per decade for the last 70 years is just less than 64\. SP'ln~lleld Growth In Censul Vear Popu atlon Palt Decades 1910 1,838 - 1920 1,855 0.925% HI30 2,644 27.5 llil40 3,805 60.1 1lil50 10,807 184.0 1lil60 19,616 81.5 1970 26,874 37.0 1980 41,621 54.9 Preliminary census data for 1980 released by the U.S. Census Bureau shows Spring- field to have had a population of 41,621 at the time of the count. Springfield's population has grown by almost 55% since 1970 when census tabulations totalled 26,874. During the same time period the adjoining city of Eugene grew by 33.4% from 79,028 in 1970 to 105,387 in 1980. Lane County's population is now 275,226 having increased 27.8\ in the last decade. Population projections for the next 20 years are contained as "assumptions" in the Metro Area General Plan. "A population of 293,700 is expected to reside in the Metropolitan area by the year 2000. This is a 63 percent increase from the 1977 population." Springfield Planning Depart- 33 Based on projections made for the Metro Area General Plan "Springfield is a young city", states the Economic Profile. Young people under the age of 18 represent 35.3% of the popula- tion. "Working age" people between the ages of 18 and 64 amount to 56.4% and peo- ple 65 and over total only 8.3% of the population as a whole. The median number of years of schooling completed is 11.8 for men, 12.1 for women. Springfield is predominantly white in its racial make up, with non-white minority groups totalling 2.8% of the population. According to the Data Sketch of Lane County women made up 46% of the labor force in 1970 and of the 56% male work force 10% were unemployed. The unemployment rate which dipped in the mid to late 70's has again climbed to average out at figures similar to those in 1970. Also noted in the Data Sketch was the statistic that "40% of the employed residents of Springfield work within the City of Eugene, and another 2% of the work force is employed outside of Lane County." According to 1980 population information, the population grew by more than 54% be- tween 1970 and 1980 while the number of housing units nearly doubled decreasing the average household size from 3.02 peo- ple to 2.38 people. Profile Specific 1980 population characteristics are unavailable at this time from the U.S. Census Bureau. When compilation, analyza- tion, and publication of the 1980 popula- tion characteristics are made available they should be incorporated in the next Willamalane Comprehensive Plan update. A number of local publications do, however, contain information that cover the years up to and through 1979. The most recent publication is the Economic Profile - Springfield, Oregon, produced by the Springfield Chamber of Commerce in 1980. Another source of information is the Data Sketch of Lane County, 1970 Census, re- leased by the Lane Council of Governments in 1972. Further population characteris- tics may be obtained by contacting the Center for Population Research and Census at Portland State University. 68,208 78,159 88,110 Year 1980 1985 1990 1995 2000 WILLAMALANE POPULATION PROJECTIONS Population 48,306 ment personnel are estimating that 30% of the total metro area population will re- side in the City of Springfield in the year 2000. Based on those figures, pop- ulation for the city in 20 years is esti- mated to be 88,110. Because Willamalane '.s current service dis- trict is much larger than the current city limits of Springfield, its service popula- tion is also greater. Estimations of wil- lamalane's current service population were made by adjusting 1980 census tract popu- lations figures to Willamalane's current service district. population was assumed to be evenly distributed throughout each census tract and the percent of land area within the park district was assumed to contain the same percent of the entire census tract population. Willamalane's service population for 1980 was thus fig- ured to be 48,306, nearly 7,000 larger than Springfield's population of 41,621. There are, in addition, an estimated 4,355 people living in adjoining County areas that are, although not paying taxes for Willamalane's services, users of the District's park and recreation facilities. Including those figures, Willamalane may currently be serving as many as 52,660 people. For planning in this document, however, the population estimate of 48,306 will be used for 1980. Since future annexations will be coordin- ated between the City and Willamalane it is also assumed in this document that Willamalane's and Springfield's population will be the same in the year 2000. The following table shows projected population figures for the District for 5 year per- iods until the year 2000. 34 SERVICE UNIT STATISTICS 1 ~...... I"I"'!:: E:J B [» • 2 0I 7 10, • •, 3 () \ 0oj g 00 18 ~ w......1M iW<'" Service Unit Population Acreage Density 1 4774 989 4.83 2 1863 309 6.02 3 4584 635 7.22 4 1012 919 1.10 5 1886 360 5.24 6 1882 359 5.24 7 6127 751 8.15 8 1046 1394 0.75 9 2448 467 5.24 10 4757 817 5.82 11 1804 694 2.60 12 2928 991 2.95 13 3706 909 4.0B 14 2805 663 4.23 15 1479 248 5.96 16 3007 505 5.96 17 1004 185 5.44 18 1194 642 1.86 Totals Units 1- 10 Units 11 - 18 48,306 30,379 17.927 11.837 7,000 4,837 4.08 4.34 3.71 35 The figures previously noted, describe the overall populations of both the City of Springfield (41,621) and the Park District (48,306). However, to gain a better un- derstanding of the particular details or characteristics of the District's service population it is necessary to examine the geographic distribution of the population and the density of population in different areas of service. A planning tool that will be used for this purpose is the Ser- vice Unit. The District has been divided into a total of 18 Service Units. The major criteria for determining Service Unit boundaries is accessibility. Major streets, highways, railroad lines and na- tural features such as rivers, or drain- ages form the edges of the Service Units. Population figures for the various Census Tracts used for the 1980 census were ap- portioned geographically to align with the Willamalane Service Units. The following map and chart show the location, popula- tion, acreage, and population density lev- els of each individual Service Unit. These facts will provide valuable informa- tion as needs are assessed at local levels and will also greatly aid in prioritizing those needs. Land Use Existing - Zoning Springfield's urban and suburban devel- opment has taken place largely on the elevated terrace between the McKenzie and Willamette Rivers. Development historic- ally occurred here as the result of a number of natural and cultural phenomena affecting the area's settlers and resi- dents. The terrace was composed of le- vel, well drained soils (primarily class I and class II agricultural land) and was above the 100 year flood elevation. These conditions allowed easy building and road construction in addition to ex- cellent crop growth. East-west mountain trails and north-south valley roads met at Springfield. Development began at this transportation core which was strengthened by the addition of the rail- road. Development spread primarily northeast to southeast, contained by the rivers and hills. Major landforms have historically been avoided as prime growth areas because of natural constraints to construction and ._-----_._------_ ..._- ----- -- POPULATION CHARACTERISTICS Females Males 65 + 45-64 25-44 15-24 0-14 6 5 4 3 2 o ThOuunds 2 3 4 5 6 65 + 45-64 25-44 15-24 0-14 36 -remain largely undeveloped. The natural Wconstraints that contribute to these ~ areas of limited development, are the high flooding potential adjacent to the I rivers, and the steep slopes and unstablesoils OJ! neighboring buttes and ridges. f The existing land use patterns are onesof mixed use throughout much of the Springfield area. Conflicting uses often occur throughout many areas of the city.f There are often discrepencies between ,,,hat is shown on the accompanying Zoning Map (Map ~B) and what actually has been I built. This is due, for the most part,to the lack of coherent and coordinated planning policies in the past regarding I growth and development on the part of thecity and county. Currently there is a more orderly, planned growth that should minimize conflicting uses in the future. f Major contributing factors to this changehave been the LCDC planning guidelines mandated by the state, the drafting of I the Metropolitan Area General Plan bylocal agencies and the formation of the Boundary Commission to oversee annexationI processes. In a simplified manner, the city can be looked at in terms of residential uses, ~ in~ustrial uses, commercial uses, and R varied types of open space. ~ Residential Areas north by the 1-105 transportation corri- dor. The Mohawk Shopping Area lies at the north-west corner of the area. Harlow-Hayden Bridge Road Area Between 1-105 and the McKenzie River, ex- tensive growth occurred in this area pri- or to annexation by the city in the 60's and 70's. The area's character is one of rural-residential land use juxtaposed with agricultural uses. Scattered medium density residential areas also occur throughout the area. Douglas Gardens Bordered by Main Street on the north, the industrial area on the west, and the I-10s/Moin Street junction marking the eastern edge, Douglas Gardens is a low density area, zoned primarily as RA (Suburban District). In many cases these neighborhoods retain much of their "rural residential" character. West Kelly Butte More recently developed than the other residential areas, and bordered by 1-5, I-IDS, Kelly Butte, and the Willamette River, this area is presently undergoing conversion from orchards and other rural uses to housing subdivisions. Thurston Area • • I ; J: f, f I . There are, in general, six major resi- dential areas in the city. Central City Area This is the oldest and first developed part of Springfield. It is characterized by many fine old homes, mature shade trees, and a number of unimproved streets. Maple School Area This area consists primarily of post-WWII and earlier housing, bordered on the east and south by industrial land. The west is bounded by the central city and the This area was Springfield's major area of growth during the 1960's and 1970's. Much of the area's early growth occurred prior to annexation by the city. Devel- opment was characterized by low density rural residential uses adjoining agricul- tural uses. The area is primarily zoned RA (Suburban District). Following annex- ation, numerous subdivisions of modern ranch style houses were platted in the area aided by the City's liberal Bancroft Bonding Policy. The area's character to- day is predominantly modern subdivisions interspersed with old farmhouses. The north-facing hillsides south of Main Street have recently seen the beginnings 37 = - of large scale development. Industrial Areas Springfield's major industrial district is a continuous area from the McKenzie River on the north, near Hayden Bridge, stretching towards the Willamette River on the south. There are two major sec- tors that make up this industrial area. One sector is south of Main Street, where the Roseboro and Old Booth-Kelly Mills have been located for decades. The other major sector is located along 1-105 in the vicinity of the Weyerhaeuser Mill. Commercial Areas The original commercial-retail center for Springfield was the downtown area. As the city grew, however, commercial activ- ity grew east in a strip-like fashion along Main Street, and now extends to 68th Street. Interspersed with these commercial areas are vacant parcels, low to high density residential areas, and the previously mentioned industrial land. Since WWII and the correspcnding growth of outlying shopping areas, the commer- cial uses in the old downtown area have slowly declined. Today, the area is be- coming the center for civic, governmental, and professional services. In the place of former retail businesses are banks, accountants, real estate and insurance offices, and other such services. A further example of this trend is the con- version of the Spring Village Shopping Mall into the City Hall and Library for the City of Springfield. A number of new commercial centers have developed as the city has grown outward from its historic center. The Mohawk area with its shopping centers, fast COMMERCIAL AREA ALONG MOHAWK BLVD. 38 foods, and entertainment services has become a major commercial district in Springfield. The "Q" Street/I-IDS area is also becoming a center for commercial activity, with the Fred Meyer store as the anchor for much development to come. The Gateway commercial area is another to have developed recently. Its proximity to the 1-5 and Beltline freeway inter- change dictated that many of its commer- cial uses would be related to travelers. Motels, restaurants, fast food outlets and service stations were the first to locate here. The regional postal facil- ity serving the entire metropolitan area was also constructed in this area. The most recent major commercial develop- ment to have occurred in Springfield is located in the area of 57th and Main Streets. In addition to the recent commercial de- velopment these areas have also experi- enced substantial construction of medium density housing, mostly in the form of rental apartments. OPEN SPACE ADJOINING NORTH ISLAND PARK 39 Future Land Use Metropolitan Area General Plan An interpretation of the Metropolitan Area General Plan (See Map #9) basically indi- cates continuing land use trends in the future, characteristic of those in past decades. Springfield's future residen- tial growth will largely be single family units, at density levels of ten or less units per acre, occurring primarily to the east of the existing Thurston area, up the McKenzie River Valley. Another major area of future single family res- idential development occurs in the Natron area, along the Willamette River, adja- cent to Jasper Road. The area will also include new light industrial uses, and a commercial node. Another area being given consideration for future residential growth and development is the lower Mohawk Valley. This area is not addressed in the current Metro Area General Plan but most likely will be addressed in the next plan update. Higher density residential areas, 21 units or more per acre, are planned to occur near existing and proposed commercial nodes and along some of the major transit corridors such as East Main, I-lOS, and 42nd Street. A number of new commercial nodes are planned in the intensively growing areas of Springfield including one along Jasper Road at 42nd Street and the previously mentioned one at Natron (the former Brand SLumber Company site). For further information regarding growth in the Springfield area, and for speci- fics regarding land use classifications, refer to the Metropolitan Area General Plan dated August 1980. The Plan is currently being reviewed at the state level by LCDC staff. Lane County through its Parks and Open Space Division has also completed the Lane County Parks Master Plan which, in par~ addresses metropolitan area park and recre- ation facilities and needs in the sub-area section dealing with the Eugene-Springfield metropolitan area. Little emphasis was given in the Plan to open space and scenic resource needs for the metro area. It 40 should also be noted that inventories of Willamalane's park and recreation facili- ties contained in the County's Master Plan are incomplete. Another major problem inherent in both the Metropolitan Area General Plan and the Lane County Parks Master Plan is that inventory and land use classifications or guidelines do not include lands north of the McKenzie River. These lands, includ- ing the Coburg Hills and Camp Creek Ridge, are important resources for the Spring- field area, not only for their existing open space value but also because they contribute heavily to the area's scenic resource base. To fully comply with LCDC GoalS - "Open Spaces, Scenic and Historic Areas and Natural Resources" these areas must be addressed in metro area planning efforts. The areas are primarily woodlands and forests. To assure that future planning serves to "conserve or enhance (these) natural or scenic resources," as guidelines for LCDC Goal 5 suggest, these lands must first be recognized as a valuable part of the metro area. This recognition should be formalized and reflected in the metro area's planning documents. Transportation Introduction The major transportation planning document for the Eugene-Springfield metropolitan area is the Transportation 2000 Plan (T-2000), published by LCOG in 1978. It sets forth a broad array of goals, objec- tives and findings, relating to area res- idents existing and future transportation needs. As stated in the T-2000 Plan, a number of policies, 48 in all, hav~ been locally adopted in order to provide a bas- is for the community to implement and achieve transportation goals stated in the Metropolitan Area General Plan. There are two primary components in the T-2000 Plan which impact existing and future transpor- tation in the Willamalane district. These components cover 1) streets and highways, and 2) transit. Bikeways are addressed in the Metropolitan Area Bikeway Master Plan. See the accompanying Map #11. Streets and Highways Transportation facilities have played a major role in the growth and development of the City of Springfield. Originally, major north-south and east-west mountain trails and valley roads intersected at springfield. Today, those trails and roads have been replaced by highways and freeways. The major north-south, coastal interstate freeway, 1-5, forms the city's western border. Highway 26 runs east-west through the city as a major link between the Pacific Coast and areas east of the Cascade Mountain range. The highway runs through the center of the city'S historic do~ntown and central business district via Main and South A Streets. To relieve con- gestion and to route through-traffic around both Springfield's and Eugene's central business districts the I-IDS free- way connector was constructed in the 1960's. The connector begins in east Springfield at Main Street and approxi- mately 57th Street and runs east-west through Springfield about one mile north of the city'S central business district. The I-IDS connector reduces congestion along Main Street-Franklin Boulevard but the traffic corridor continues to be heav- ily used. This is due in part to its con- venient location and direct accessibility to and from important areas in both Spring- field and Eugene. East-west arterial streets play an extreme- ly crucial role in the transportation sys- tem in the Willama1ane District. The lin- eal growth pattern of the city to the east, from Springfield's original core along the Willamette River, has created a city that is about three and one quarter miles north to south and nearly ten miles east to west. The original east-west traffic corridor was along Main Street. 1-105, Hayden Bridge Road, Harlow Road, Centennial Blvd., Thur- ston and High Banks Roads all serve as major east-west connectors. Second and Third Streets, 14th Street, Mohawk Road, 21st, 28th, 42nd, 48th, 58th, and 69th Streets all serve as major north-south connectors. . -:-"-- ---- The T-2000 Plan identifies two major traf- fic corridors anticipated to experience serious congestion, vehicle overloads, and capacity deficiencies by the year 2000. These two are the Franklin Blvd-Main Street corridor and the proposed McVay Corridor (30th Avenue Connector). In addition to these two corridors such thoroughfares as South A Street, 14th Street, Mohawk Blvd., and 42nd Street are also expected to exper- ience large traffic volumes. A number of methods for dealing with over- used streets and highways are mentioned in the T-2000 Plan. They range from minor intersection improvements to construction of new freeways. Two major limited-access routes are planned or proposed for construction in the future. The first is a "planned" extension of I-IDS from its existing terminus at Main Street, south to Jasper and eventually linking to Highway 58. This improvement will drama- tically relieve traffic problems along Jasper Lowell Road. Another major develop- ment that has been "proposed" is the McVay Corridor (30th Avenue Connector) extending south from Main Street and connect~nq with 30th Avenue near Lane Community College. The McVay Corridor will cross both the Mid- dle and Coast Forks of the Willamette and 41 provide direct access to the Springfield industrial area. The information for the accompanying Traf- fic Counts Map (See Map #10) was provided by the €ity of Springfield's Engineering Department and was compiled in 1980. The map indicates typical volumes of traffic encountered in many of the area's major traffic ways. Future studies should be undertaken to further understand those volumes as they relate to the individual street's carrying capacity. Hierarchical classifications of the area's traffic ways and transit ways would also be helpful for planning purposes. Once classifications and service levels are determined, future plans could be directed towards projects contributing the largest positive impacts in facilitating area-wide transit goals. See Appendix. Transit The T-2000 Plan recommends area wide trans- it goals of " ... 15% transit usage in Eu- gene, 10-15% transit usage in Lane CQunty, and 15% transit usage in Springfield ... " Many transit modes are currently being uti- lized or experimented within the metro area. Lane Transit District (LTD) operates a modern fleet of busses and shuttles. Pre- viously available was the "Dial-A-Bus" ser- vice ror the specialized population of the area with physical handicaps. Now, how- ever, lifts for wheelchairs are being in- stalled in all standard LTD busses. This should prove to be more convenient and cost effective than the former Dial-A-Bus sys- tem. 42 Other para-transit experiments are on-going in the community including car pooling, van pooling, and shuttle services. Shown in the accompanying Transit Map (Map #11) are locations of existing and proposed Lane Transit District express and conventional bus routes, and transit stations. Due to a variety of reasons, conventional bus routes and time tables a~e s~bject to frequent change. Therefore, only major and express routes are shown on the accompanying map. Nevertheless, it is crucial that route planning for transit include criteria re- lating to the area's park and yecreational facilities so that they remain conveniently accessible to those segments of the popula- tion dependent upon the public transit sys- tem for mobility. Bikeways Locations for planned and proposed bikeways are contained in the Metropolitan Area Bikeway Master Plan. The major goal put forth in the document is to develop "a sys- tem of safe, convenient, and attractive bikeways which is an integral part of the overall Eugene-Springfield metro area transportation system." The Bikeway Map (Map #11) shows how the existing, planned and proposed bikeways will accomplish that end. These proposed bikeways and those that already exist serve to link park and recreation facilities with residential areas and other major destination points. In so doing they fulfill the need, parti- 43 cularly for the district's children, for safe access to and from these destination points. The overall cost of the completed metro system, consisting of 175 miles of bikeways was estimated at $5.7 million in 1975. The plans for construction of the system are broken into phases according to prior- itized need. Emphasis, as stated in one of the Plan's objectives, is placed upon " ... provision of bikeways that link major community activity centers and population areas." Prioritized phasing represents " ... recommendations on how best to proceed with the development of the bikeway net- work in an expeditious manner." Utilities The utility system is an extensive network of rights-of-ways, easements, and other lands set aside to provide urban services to area residents. As noted on the ac- companying map (see Map #12), utilities in the Springfield Area include the following: 1. Well fields 2. Water mains 3. Sewage treatment plants 4. Sanitary sewer trunk lines 5. Electrical substations 6. Electrical transmission 7. Reservoirs 8. Glenwood Solid Waste Recovery Center Many of these lands serve as de-facto open space due to the underground or overhead nature typical of utilities. For example water mains, storm and sanitary sewers re- main buried and out of sight while e10c- trical transmission lines run 50 to 150 feet above the ground in wide corridors of open space. In most cases, these cor- ridors of land used by utilities return to vegetated conditions after construction and are miniIr.ally maintained thereafter. Power line corridors are more intensively main- tained for fire safety reasons. Vegetation removal Or maintenance is usually accom- plished through the spraying of herbicides. The open space provided by the corridors is valued by wildlife as well as area resi- dents. ID some cases utility easements can serve an important role in an area's recre- ational system. In many areas of the state as well as throughout the rest of the coun- try, utility corridors are being incorpor- ated into recreation plans. Golf courses, parks, and bike paths are just a few of the projects that have been constructed by park districts or agencies where utility compan- ies have been agreeable to multiple use of their lands. A local example of this co- operative spirit is exemplified by the bike path recently constructed on the EWEB water line easement in north Springfield. I I r..---- I 44 Reservoirs Welloelds ElectrICal Transmission & SubSlations Water Main::: Samtary Sewer Sewa~ Treillll'lElflt PlBnls I A number of utility suppliers own lar,ds in the area: Electricity 1. Springfield Utility Board 2. Eugene Water and Electric Board 3. Pacific Power and Light 4. Bonneville Power Administration Water 1. Springfield Utility Board 2. Rainbow Water District 3. Eugene Water and Electric Board Natural gas is provided to area residents by Northwest Natural Gas and phone service is provided by Pacific Northwest Bell. Willamette River Greenway The Oregon Legislature in 1973 enac"ted the Greenway Law which defined the Wi11amette River Greenway as follows: The Willamette River means that portion of the Willamette River including all chan- nels of the Willamette River from its con- fluence with the Columbia River upstream to Dexter Dam and the Coast Fork of the Willamette River upstream to the Cottage Grove Dam. ORS 390.310 - 390.368. Findings and policies made by the Legis- lature regarding the intent of the Green- way are as follows: 1. It is in the public jnterest to protect and preserve natural, scenic, historic, and recreational qualities of lands along the Willamette River. 2. It was recognized that a coordinated planning effort is necessary. 3. It is necessary to recognize that ex- isting uses must continue and intensi- fication and change in uses should be limited. 4. It was recognized that farming is com- patible with the intent of the Green- way and should not be restricted. 5. The need for central coordination was realized and the responsibility of the development and maintenance of the Greenway. 6. There is no need for public ownership of all lands along the river. The Metro Area General Plan states that ... on December 16, 1975, the Land Conser- vation and Development Commission adopted Statewide Planning Goal 15, Willamette River. The goal sets forth the overall framework within which state and local governments protection and maintenance of the Willamette River Greenway. LCDC's overall goal statement for the Wil- lamette River Greenway is as follows: To protect, conserve, enhance, and maintain the natural, scenic, historical, agricul- tural, economic, and recreational quali- ties of lands along the Willamette River. Further stated in the Metro Plan is the fact that, "the Willamette River has long been recognized in the Eugene-Sp~ingfie1d area as a valuable natural asset." To that end numerous properties along the Willam- ette have been acquired. Mentioned in the Metro Plan are Mt. Pisgah (Howard Buford Recreation Area), Skinners Butte, Alton Baker Park and Island Park. Notable parks in the Willamalane study area not men- tioned in the Plan are Clearwater Park, an undeveloped park site owned by Lane County, and Dorris Ranch owned by Willama- lane. The Dorris Ranch - Land Use Plan, adopted by Willamalane's elected Board of Directors in 1980, was also not referred to in the Metro Plan's section "Relation- ship to Other Plans and Policies". This omission is major in that the Dorris Ranch - Land Use Plan is an important doc- ument, adopted by a publicly elected Board of Directors representing an electorate of more than 48,000 people within the Willam- alane Park and Recreation District. The Dorris Ranch site was not included in the Springfield Willamette Greenway Study be- cause the city's jurisdictional boundary, 45 differing widely from Willamalane, in- cludes only those lands north of South F Street. Willamalane's jurisdiction in- cludes all lands on both sides of the Wil- lamette from the confluence of the Middle and Coast Forks north to the Interstate S bridge. As well as this, Willamalane's district includes most of the land along the north bank of the Middle Fork south of Springfield. The following table lists all lands, both in the Willamette Greenway and in the Wil- lamalane Study Area, which are in public ownership: To date, the only park site amongst these lands to have been extensively developed for park usage in the Willamalane Study Area is Island Park. The Ballew property was acquired by Willamalane in 1974. Lo- cated across the Millrace, north of Island Park, the site will eventually be linked to the park with the construction of a pe- destrian and bicycle bridge. This connec- tion will allow for direct pedestrian ac- cess to the park from the Kelly Butte neighborhood area. In addition, the bicy- cle path along North D Street, which ex- tends into Alton Baker Park, will be routed directly into Island Park. * Only partial ownership exists at this time. Development of Alton Baker Park east of I- S at this time includes only a bike path and the inlet to the Alton Baker Canoe Ca- nal. All development for intensive park use in Alton Baker Park has occurred on the park's west side in close proximity to Eugene's Skinners Butte Park. It is more than a mile away from the closest Willama- lane resident and nearly ten miles from the most distant residents of Willama- lane's District. Lane County Addition}* Lane County Willamalane Willamalane Willamalane Lane County Lane County Springfield Utility Board Alton Baker Park (Alton Baker - East Island Park Ballew Property Dorris Ranch Clearwater Park Mt. Pisgah Middle Fork Well Field Coast Fork 30/30 Comeclor', \ (proposed) '. \ The Willamette Greenway 46 All the other lands listed above are planned for park development at some time in the future with the exception of the S.U.B. Well Site on the north bank of the Middle Fork south of both 28th and M Streets. The site is bounded by the Springfield Millrace and the willamette River. It is in close proximity to the informal "park" site where early Spring- field residents gathered in the late 1800's to picnic, swim and boat. The Lane County Parks Master Plan includes further acquisition proposals (1980 through 1985), for the Alton Baker-East Addition, in its section "Plan Implementa- tion: Development and Acquisition Objec- tives". The County has no further plans for development or construction at any of its park sites east of 1-5 and north of the Middle Fork of the Willamette River through the year 1995. No mention of the development of Clearwater Park is planned through 1995 with the possible exception of a Boating/Fishing Access Area at an un- specified point along the Middle Fork of the Willamette River. This would be de- veloped between 1985 and 1990. Land uses, other than park lands, along the Willamette River within the stUdy area include residential and mobile home areas, industrial and agricultural lands and ag- gregate and mineral extraction sites. Scenic Areas The Scenic Areas Map (Map #13) uses back- ground data from the LCOG inventory, which was prepared for the working Papers. It must be noted that Map #13 differs sig- nificantly in some areas from information presented in the working Papers. One not- able example is the omission in the Work- ing Papers and General Plan, of lands in- ventoried north of the McKenzie River, as was noted in the preceeding land use sec- tion. It is noted in the Working Papers that, "not. all sites that are present in the Metro Area will be identified in this working paper. Some will be errors of omis~ion... most, however, will not be men- tioned because, they do not meet the over- all and specific standards that are de- scribed in the remainder of the Paper." The particular characteristics or "weight- ing" factors that contributed to the in- clusion of some areas, while others were excluded are not described in the Paper. In the case of scenic resources, as areas become developed and the overall scarcity of a resource increases, areas of that particular resource, once considered low in value, become increasingly more valu- able. For that reason all areas origin- ally classified as "scenic" in the back- ground data are shown on the Scenic Areas Map. In some i~stances, revisions have been made as the result of more detailed inventory and mapping completed as a part of this study. Three characteristics were shared by the eight standards for classification devel- oped in the Metro Area General Plan pro- cess to identify scenic areas: 1. A high value is placed on vegetation and natural features. 2. Sites are valued that provide an ele- ment of visual diversity to the Metro Area. J. specific sites of scenic interest are identified but not the corridor between viewer and ~ites. The Scenic Areas Map is comprised of lands incorporating one or more of the seven following elements identified as having specific scenic value. In cases where twO or more elements exist in one area, the element considered of "highest priority", as identified in the Working Papers, is sho....'n. 1. Ridgelines and Buttes Higher ground, such as ridges and buttes, is, in most cases, visually dominant over the surrounding land- scape. The topographic features of the area fit in two general categories: Smeller scale buttes that rise out of the surrounding landscape, such as 47 -Kelly Butte and Vitus Butte, and ridges of higher elevation that ring the city Springfield, such as Camp Creek Ridge and Coburg Ridge. Both are for the most part natural in appearance, cov- ered with grasses and shrubs, dense forest, open woodland, or combinations thereof. 2. Vista Points Most of the vista points are located atop the buttes and ridges of the area. They provide views of the surrounding landscape unavailable at lower eleva- tions. Virtually all are in some form of public ownership. Some, such as Kelly Butte and Willamette Heights (both Willamalane parks) are geared more to public use than others, such as Vitus Butte (EWEB) and portions of the Coburg Hills managed by the Bureau of Land Management. 3. Surface Waters Surface waters consist of rivers, creeks, drainage ways, millraces, sloughs, and both natural and man-made ponds. 4. Prominent Vegetation The Working Papers define areas of prominent vegetation as having " ... a relatively high number of large trees". This includes deciduous species along water courses, along with conifers and hardwoods of the hillsides. 5. Old Growth Douglas Fir This refers to all stands of Douglas Fir over 100 years old. 6. Land in Agricultural Use Agriculture is often among the most scenic of land uses. As there is no provision for continued, future agri- cultural use within,the Urban Services Boundary, lands currently in agricul- tural use outside the Urban Services 48 Boundary are indicated here. (See Vacant Lands Map for current agricul- tural use within the U.S.B.). 7. Parks, Golf Courses and Cemeteries Each of these features is primarily man-made and in contrast to some of the previously described scenic areas they are essentially natural in appear- ance. However, these lands do provide much needed diversity in the urban area and do serve as scenic resources. The Working Papers make particular note of the value of water in the landscape as a scenic element stating, "water provides one of the most basic natural contrasts and scenic sites. The still water of ponds and lakes provides an open, reflec- tive surface for viewing." In addition, the Paper states, "moving water in streams and rivers can provide all of the scenic values present in still water in combina- tion with a variety of audible and visual effects. Not all of these streams have year-round flow. These are some of the most diverse and valuable scenic sites in the Metro Area." '2, E E o v ~ < < < •ii: .. 2 •E < 2 ., < w 0, •, 7 0' z • Map o 0 ...COu OJ"'... ~ o Zz «2...J~ o..~ uww '"<:::0(/)~ z'"W~ :r:~ w::i a::5 0..<~~ O~() '" '"< '" '" '"f- < -I u o o u < ... Ir~lANNEXATIONS JURISDICTIONAL BOUNDARIES 8 •• '_ Urban Service Boundary ••••• W~lamalane Boundary ••••• Springfield Boundary ....... Combined Wilamalane & Springfield Boundary ,'. , ••••• • ./ '"- ,* ,~ ~ / ~ 4t/~\" • : ... • •• • ••• • •••• •: .;' .. • ,~#' l- ••• .n.;" •• •Ii ., -, • ••• • • •:.. { • LOClt1on of Urban S4!rvice Boundary obtained fr_ Metro Arel Genenl Phn. August, 1980. Pl"Oduced by ltlIG. • ·CHyof Springfield Annuations 186. to 1979", C~ter ~P. Scale: 1:30,000. LCOG. • Locations of Wl11amahne Park and Recreation District Boundary and Cfty of Springfield Boundary obtained f~ those agencies and updated by l,ne County Boundary C~isslon. SOURC[S: + o. ~ ~ < '" < • '" a: • ... E • < E< -' e ., u ~ - z(/)< Z~W~ :1:"-W~ 0::5 0..< ·1~5 , 0=()~ I~ I. - - Map 8 . LAND USE ZONING A,r1col .... l Ol1trlct ....1t '" V> '"d u 0( u o USELAND METRO AREA GENERAL PLAN ~Forest ~AgriCUIIUral ••••• Urban Service Boundary ••••• Wiltamalane Boundary ••••• Springfield Boundary ••••••• Combined Wllama!ane & Springfield Boundary Special Light Industrial Heavy Industrial Govenvnent & Education ~;;;',,".Sand & Gravel b..:·'$:,.",) Parks & Open Space ~Aural CSJ Low Density Residential :";':::'i:::';'Xt::: Medium Density Residential High Density Residential Commercial Major Reta~ SOURCE: • See Hap 13, MScenit Areas and Historit Sites", for sources. +SOURCE: • "Traffic Flow Kap", scale: 1:12,000, 1980, City of Sprin9field, Public Works OePfort-enl Traffic Division. _.- KEY .- -0- .-M_ IUH OM' ..- VEHClE VQW.1E ( 2.4 tJ'. sarrpIe ) TRAFFIC COUNTS 0>-CO2 0)">- ... '"<5 Zz <2--l~ o..i:! "UJw>~ - ZC/)< Z~UJ~ J:~ UJ~ a::i 0..<~~ 0"Oi' Map 10 -Map 11 0 .. " .- """!'l oZZ ~ - z(f)~ Z~w~Io. w~ 0::5 a.~::E~ 0=()~ UTILITIES 1 EXIST. TRI..JNK LJ TRUNK LJN U£S RESERVOR$ • EXISTNG SUBSTATION~LI EXIST. & PROPOSED 0 PROPOSED SUBSTAllONWEll. FElDS ••••••• EXIST. WATER MAINS EXIST. ELECTRICAL TRANSMlSSK>N mES + SOURCE: • ·Au~111.ry Maps 1 &Z", "Metro Area Gener.l P1an~. Allgust, 1980, produced by LCOG. +, i ( ~ • LJ 1 '" .. . . .Y{)f: A A , .--."'" ... < - IJ o .~ c c •0: c .'"•~ c • :5 .. '"c E E o u • CV.I lWI'''L • •, •• , , • N • '"= • < -. . " ' - ·G· ST • • ---; .~ • 0 •g "· , • • • • • . • 7 • • " ....... .... .. , -<----u Map 13 SCENIC AREAS & HISTORIC SITESGOff" HOUSE EBBERT MEMORIAL CHURCH & PARSONAGE OTHER POSSIBLE DESIGNATIONS • POTENTIAL DESIG . School District # 19 Facilities Inventory #2 The totals from School District #19 Facil- ities Inventory #1 indicate the School District owns the following major facili- ties: (See 5.0.# 19 Facilities Inventory #2) Combined Major Facilities Inventory +3 This final inventory indicates major rec- reation facilities available for public use provided by both Willamalane and by School District #19. The inventory clearly shows how the facilities provided by Wil- lamalane are complimented by those provided by the School District much to the benefit of both the area's residents and tax payers. (See Combined Major Facilities Inventory #3) WILLAMALANE FACILITIES INVENTORY #1 • Park DOUGIAS GARDENS GAMEBIRD JAMES KELLi' BUTTE MEADOW MENLO PAGE ROBIN ROYAL DELLE THURSTON PARK TYSON WILIAMETTE HEIGHTS *42ND STREET PARK *58TH STREET PARK Acres 5.3 1.8 3.0 5.6 7.2 1.7 3.8 .8 2.6 5.2 4.0 4.2 6.2 4.5 2 1 2 2 2 2 0) 2 1 2 1 1 , 1 *BOB ARTZ MEMORIAL PARK GUY LEE PARK NORTH ISLAND *THURSTON MIDDLE SCHOOL PARK WILIAMALANE 10.5 8.5 14.0 14.5 15.2 ,) 2) 2 2 .ldJ 12 , ISLAND *DORRIS RANCH 18.0 ITIIIIJTI 250.74 I No Preliminary Designs * (3) Undeveloped Parks Facilities proposed in undeveloped parks or practice facilities in developed parks will not be included in inventory tables or in assessment on the District's net need for additional facilities today, and in the future. 113 SCHOOL DISTRICT.,. 19 FACILITIES INVENTORY'" 1 SChool ELEMENTARY BRATTAIN CENTENNIAL *CLEARWATER DOUGLAS GARDENS *GATEWAY *GARDEN WAY GUY LEE MAPLE MOFFITT MT. VERNON PAGE *ROLLING OAKS THURSTON YOLANDA 66TH STREET *51ST STREET MIDDLE BRIGGS HAMLIN SPRINGFIELD THURSTON SENIOR HIGH Acres 2.4 13.1 19.0 11. 5 10.0 14.0 11.1 9.6 13.3 8.2 10.3 33.0 11.1 9.1 10.0 3.1 18.9 20.0 15.1 33.8 2 J I 11 21 (1) I 12 21 I '1 I 12 3 1 2 (2) 1 2 (1) 1 2 3 2 (1) 3 2 2 2 1 1 2 1 2 1 3 2 (1) 2 2 1 2 2 2 2 2 2 1 5 o 0- o o o o o o o o o 0+ 0+ o 0+ (2) Undeveloped Indoor Gymnasium Outdoor Track Facility Jogging Trail (incomplete) These softball diamonds and tennis courts on Sohool District # 19 grounds are considered "practice facilities" having insufficient development or dimensions necessary for league play or competitive play. * o + SPRINGFIELD THURSTON 20.0 54.7 ~O+[ITI]illili]ill 0+ 114 Facility WILLAMALANE FACILITIES INVENTORY #- 2 Existing Proposed Vista Points Boat Ramps Basketball Half-Courts Multi-Purpose Courts Tennis Courts Softball Diamonds (League) Softball Diamonds (Practice) Baseball Diamonds Football/Soccer Fields Multi-Purpose Fields Indoor Gymnasium (Memorial Bldg) Aquatics Center 2 1 (semi-improved 13 o 12 5 2 o o 5 1 1 o o 2 o o 3 o o 2 o o o Facili1y SCHOOL DISTRICT #- 19 FACILITIES INVENTORY #- 2 Existing Proposed Basketball Half Courts Multi-purpose Courts Tennis Courts (Standard) Tennis Courts (Practice) Softball Diamonds (League Play) Softball Diamonds (Practice) Baseball Diamonds Football/Soccer Fields Multi-purpose Fields Indoor Gymnasiums Outdoor Track Facilities 31 o 2 1 3 7 7 6 35 17 5 o o o o o o o o o o o 115 COMBINED MAJOR FACILITIES INVENTORY"" 3 Facility Willamalane School District",. 19 Total Basketball Half Courts 13 31 44 Multi-purpose Courts 0 0 0 Tennis Courts (S) 12 2 14 Tennis Courts (P). 0 1 1 Softball Diamonds (L) 5 3 8 Softball Diamonds (P) 2 7 9 Baseball Diamonds 0 7 7 Football/Soccer Fields 0 6 6 Multi-purpose Fields 5 35 40 Indoor Gymnasiums 1 17 18 Outdoor Track Facilities 0 5 5 Aquatics Center 1 0 1 CHILDREN'S PLA Y AREA IN MEADOW PARK 116 -Additional Public Facilities A number of recreation facilities are made available by other public agencies. The County supplies bike paths and the canoe canal in Alton Baker Park. The County also supplies three boat ramps in the study area: Two on the McKenzie River and one in the Middle Fork of the Willamette River. There is an additional unimproved boat ramp for public use on the McKenzie River near Hayden Bridge at the site of the Eugene Water and Electric Board water- intake facility. Although no golf courses exist within the study area, the greater metropolitan area does contain seven pUb- lic courses available for the use of Wil- lamalane residents. These facilities range from "tournament play" courses to "executive par-three" courses. Private Recreation Facilities Numerous recreation facilities located within the Park District or the greater metropolitan area are supplied by the pri- vate sector. In all cases facilities pro- vided by the private sector represent high levels of development and substantial cap- ital investments. Unlike publicly sup- plied facilities, which are in part sup- ported by taxes for agency operating bud- gets, recreational opportunities provided by the private sector are supported by fees, rates or dues, "as the market will bear", representing the true cost of these facilities. Included in these varied charges are operating and maintenance costs, principle and interest payments on outstanding loans, taxes and in many cases profit. Within the study area there are two bowling alleys, a roller skating rink, a bingo par- lor and five movie theaters including both walk-ins and drive-ins. Located outside the study area but within the greater me- tropolitan area are two private golf courses, Shadow Hills and Eugene Country Clubs. Two public/private clubs, Court sports I and II provide complete indoor facilities for handball, raquetball and squash. On the east side of Eugene is the Eugene Swim and Tennis club. This private membership club offers an indoor swimming pool and numerous indoor, all-weather ten- nis courts. Another private membership facility in the west side of Eugene is the Willow Creek Raquet Club. The club has six outdoor tennis courts, six indoor courts and two additional indoor courts for handball, raquetball and squash. The YMCA, located in Eugene, has a major fa- cility for public use and membership. The facility is equipped with an aquatics center including a new therapy pool, a weight-training room, indoor raquetball courts and an indoor tennis facility. The area's only firearm, shooting range is maintained by the Emerald Empire Gun Club and is located on McGowan Creek Road north of Springfield. An indoor, all-weather facility is currently planned for construc- tion in west Eugene. In addition to the facilities listed above numerous theaters, bowling alleys and roller skating rinks are available for public use in the great- er metropolitan area. 117 14 Map o~COo OJ"'~ ...-"oZZ c(Q ...J~ 0.1:! o W~>~ - zm< Z~W~ J:"-W~ a:~0.<~~ 0=U" ~ c C c •0: ~ •E c e ;: c ~ • c "" '" ~ " '" c •0< :5 .. .. >~ .. c, .. E E 0 V '" ·• '" , "0 ~~ U "<0< •~ • ... u •~ c •~ on Park Thtnton_ 66 til SIr. Elem. SChool ;; SCIlooI RECREATION INVENTORY Tturston Middldlle~=tr:f:~~~iii'il~""" ...School Park -~ ~i. e ~. WLLAMALANE PARKS [~m~~~l~i~;,:;H1 COUNTY PARKS o SCHOOLS fifE BLM. l»I>S _ CEMETERIES • BOWl~G ALLEYS & SKAT~G RNKS • BOAT lANDINGS tZZ:i.1• : WILlAMETTE • • ... GREENWAY ~ WllLAMAlANE SERVICE UNITS • • 1~--~,t-... r;;;"'--:) ,<11,~-'1=- North Island Park Yolanda SChOol.r:---.,.----.., • > • • ", --- ;! • W[ugene East TOPGgnphic Quadrangle-, 7.S .inute series, 1967, photo reyised 1975, U.S. GeQlogic Survey. • Willamalane Park and Recreation District Planning Staff. • ·W11111mette Greenway- Map. scale: 1:l4.000, LCQG. SOORCES: + • • •Hamlin Middle" School '" ",";~~7"4r~..;;:~~~TF~·~ Maple School~ C NNI.t.L - wtleld-.:t __ • ~1~__-j'~==:l7;"1<:;'1 -Klare SC:noi - -J" s-r=' !: Willamalane ~~~.~.~.. '!'~P",k~~, E Spmglield cp£ j £ ~ >-._ :, Tyson Park J_.",nicS- Adu,~:----;j- Brattain Sell 01 _ •A tivi y Ce er £ • MAIN amJbird Parkfu Undeve ped~ ~ S 001 SilelI "\ " ~ Bfi9gs Middle1---~~!i1••JI,.~"]-.J10~~iY~Lf'e.~-r':'~·""~~:U"-r:::"~=·:·;,,'!:':""6"~_~Sf~$:':J==J:J,:--~~ ,SChool .-- - 3l ' Page SchooI__ r 'Guy L11 _ . ~ '---"\ ••i PaQEl Park~-Park ~ 15 Map 0 ...COg 0>'"... ,...'" oZZ «Q ...J~ a.~ uww>~ - zC/)< Z~W~ I~ W::! a::\0.<~~ 0=OiO \ I d ~ ~ I.~ c 0 ~c ~ '" c ~• ",! 0: ~•! • ~'f-oJ C • < E ic - e {, ~ u c ~w ·0 c . ~ '" • " '" c 8 • ~< ~:5 .. i - • > d~ z c •, •• E ~E ,, ~ v '" · "'" , "d • !:f • U e J< < c • •~ ~ • • .... e Q ~ M • , 0 ~ ~ I~I SERVICE AREAS NEIGHBORHOOD PARKS NOTE: Broken Radii Lines Indicate Undeveloped Parks SERVICE AREA RAOII Ihi] IWILLAMALANE ~ SERVICE UNITS r=;;;;=;i1 WILLAMALANE PARK PROPERTIES '" ~A'II.-DW " > ~• • • •~I A.'II~ ",~I , _. - SOORCE: • Lacoss and Associates, landscape Architects and Planners. + - -~D~~~~~~~~~~~w"~':~ala~;e~'~~----;.~~• Park . • A major step in planning for future growth and development of parks and recreation facilities is to establish the needs for both. To establish willamalane's park and recreation needs, this chapter reviews demand and expressed need at the County, Metropolitan Area, and local level. Population projections for the District are listed. Certain recreational trends are reviewed to assist predicting the forseeable future. National and State quanity standards for parks and recreation facilities are reviewed and listed for comparative purposes. After analysis of all of this information, and input from the Citizen Advisory Committee, appropriate local standards were developed and adopted. These standards are applied to the District for 1980, 1985, and the year 2000 population projections to estab- lish gross need for the District. Existing developed parks and facilities are subtracted from the gross need to establish net need. These net needs are shown with the District facilities alone and with multiuse of Willamalane's facilities, School District facilities, and County facilities within the Park District. Park and Recreation Needs Demand Introduction Measuring demand for recreation areas and facilities is an inexact science. There are many factors that affect the recrea- tion demand of individuals and of whole populations and there are as many theories on how that demand should be assessed or measured. Recreation demand in its most simple sense is an individual's or entire population's "desire for a recreational activity." In some cases it requires a specific place, a park for instance, for that activity to occur. In other cases that activity may require specific recrea- tion facilities; examples might be a swim- ming pool or a tennis court. ~~asuring demand then. is assessing existing and fu- ture recreation behavior. Demand measured against supply of existing recreation op- portunities indicates the net need for ad- ditional recreation areas or facilities. In concept there are three recognized forms of recreation demand: latent demand, induced demand and expressed demand. All are important components relating to the use, design, and management of park and recreation resources. Latent Demand Latent demand is the recreation demand in- herent in the District's service popula- tion, but not reflected in the use of ex- isting facilities. Participation and use can, however, be expected, if adequate fa- cilities, access and public information are provided. This concept of demand attempts to translate the basic hierarchy of human needs into recreation or leisure desires. These can be described as they relate to park and recreation facilities in terms of user preference and satisfaction. Latent demand is the basis for the theory that provision of park and recreation fa- cilities create demand. The theory sug- gests that the District's population will use available opportunities if they are provided. The District's role is to pro- vide a diverse set of opportunities in the form of parks, leisure programs and recre- ation facilities with the expectation of reasonable levels of public use. Induced Demand Induced demand is latent demand which can be stimulated by either the construction of new recreation opportunities or through a directed educational process utilizing pub- lic information. Induced demand exploits latent demand by encouraging people to change their recreation patterns. The pri- vate sector commonly uses concepts of in- duced demand by providing recreation oppor- tunities usually in the form of facilities and then using the media via advertising campaigns to further induce demand. The public sector induces demand when it pro- vides new recreation opportunities but little has been done by the public sector to change peoples recreation patterns via the use of mass media. Expressed Demand Expressed demand is consumption or partici- pation in terms of existing recreation op- portunities. Expressed demand and related recreation behavior is usually measured in participation rates and facility use. Expressed demand describes what people do instead of what they would like to do (la- tent demand) or what they can be condi- tioned to do (induced demand). The dif- ferences between expressed and latent de- mand can also be described in terms of par- ticipation and preference for selected ac- tivities. 125 Expressed demand is often the expression of latent or induced demand but not always. It only indicates participation at prevail- ing opportunity conditions and normally omits considerations of price, supply, ac- cess, skill or equipment necessary, or user satisfaction with the recreation experience. History The recent recreation demand in Willama- lane Park and Recreation District through- out the entire State of Oregon has drama- tically changed from what it had been a number of years ago. The Statewide Com- prehensive Outdoor Recreation Plan ex- plained the changes in the following man- ner: A few decades ago there was little demand for public recreation. The people recog- nized the natural resources as part of their primarily rural lifestyle and "re- creation" as an individual responsibility. Most people had access, through friends or relatives, to various lands on which re- creation could occur. Available "swirruning holes" and other favorite recreation spots were either not polluted or people were not conscious of the pollution. As society began to change, rural lands and people became urbanized. The disper- sal and increase of population together with industry and technology helped de- prive people of their former recreation opportunities. Physical activities of the past became sedentary activities of the present. Access to rural lands be- came increasingly difficult, since friends and relatives moved to town with everyone else. The result was an ever-increasing demand for recreation opportunities. 126 Population Projections One method of measuring this "ever- increasing demand for recreation oppor- tunities" is accomplished through using population projections. In a previous chapter discussing population it was noted that Willamalane's current service population is estimated to be 48,306 and projected to be 88,110 by the year 2000 or an increase of more than 82 percent in twenty years. These figures further indi- cate that the park district's population will increase by almost 10,000 persons every five years. Applying this to future recreation needs means that by 1985 demand will increase by more than 20 percent over levels existing in 1980. population pro- jections are only one way of understanding what future recreation demand may be. A number of other factors also influence de- mand and may be beneficial in gaining more specific details of recreation demand for a specific locale. Influencing factors can occur at national, state, and local levels and all shed light on how recreation behavior may change in the future. At the national level a ser- ies of factors and issues called trends exist that will have or are having direct impact on recreation demand. A brief de- scription of these trends follows. WILLAMALANE POPULATION PROJECTIONS Year Population 1980 48,306 1985 58,257 1990 68,208 1995 78,159 2000 88,110 Based On Projections Made For Metro Area General Plan Recreation Trends Use Patterns Most urban parks are under-utilized or un- used by major portions of the population they were intended to serve. The phenom- ena of non-use is common in both urban and suburban areas. Both the number of users, and the time they spend in neighborhood parks, is decreasing relative to their to- tal time bUdget for leisure or recreation and the amount of leisure time spent in non-urban and private recreation places. Demand Decreasing levels of disposable income, increasing unemployment, inflation and increased amounts of leisure time will lessen the demand for high-cost activi- ties, e.g. power boating, resorts, ski- ing. Conversely, it will increase the demand for simple, low-cost activities, e.g. walking, bicycling, swimming, jog- ging, canoeing, or rafting. Energy Conservation The continued increase in the cost of fuel (gasoline) and travel is forcing people to change their priorities in seek- ing energy conserving ways to spend their leisure time and recreation patterns. The emphasis for locating recreation areas and facilities in close proximity to pop- ulation centers will continue to increase as people's ability to travel decreases. The options for personal transportation will continue to decrease and will be re- placed by increased need for utilizing mass transit, bicycling, or pedestrian access to local recreation opportunities. Location and Access Location of parks and recreation facili- ties so that even distribution is achieved is a major factor affecting the success of recreation programs. Considerations must be given to population density and the availability of public transportation as well as barriers to pedestrian or bicycle access when planning for the location of new facilities. The acquisition and de- velopment of large tracts in outlying areas will not meet the needs of the great majority of city residents who rely on readily available neighborhood parks and facilities. Public Transportation Because adequate public transportation is not available to most regional and commun- ity parks, approximately 30 percent of the urban population who cannot drive or who do not own cars must rely on local parks for recreation opportunities. Rural Bias Federal and State parks and expenditures have traditionally favored non-urban areas which are accessible for the most part only by automobile and are at great distances from major population centers. Decreased funding places an emphasis on maintaining existing facilities and leaves little hope for expansion or de- velopment of new facilities close to ur- ban areas currently unserved. Land Availability and Cost Emphasis on controlled growth and more dense urban development is drastically increasing the costs of land and the competition for different land uses. Where growth occurs prior to the ac- quisition or preservation of lands for park and recreation uses, the availability of lands at later dates for park uses many times does not exist. 127 Coordination and Cost Failures in formalizing coordination and cooperation in planning and developing park and recreation resources between state, county, and local public agencies are a major problem in preventing the op- timum development and utilization of ex- isting and potential recreation resources. Potential Recreation Resources Optimum utilization of potential recre- ation resources and public facilities is not being achieved in most local areas. Publicly owned facilities with existing recreation capabilities are being under- used. School facilities even in jurisdic- tions having city-park-school agreements are not being utilized effectively, and tax dollar expenditures are many times being duplicated unnecessarily. public agencies must expand the multiple use of facilities, establishing park-school com- plexes and employ imaginative design, con- struction, management and maintenance techniques. Funding Municipal austerity programs have had a profound effect on maintenance, develop- ment and re-development of urban parks. Park systems will be unable to accomodate increased use levels which could result from prolonged economic pressures. These include inflation, recession, tax cutting, and increased energy costs, without sub- stantial increases in funding for park and recreation services. Deferred development and maintenance of existing parks and re- creation has made it difficult to accomo- date normal use levels without imposing increased fees or charges or curtailing levels of development and management. Additionally, federal funding for parks and recreation is being consolidated in the National Park Service or distributed to local areas in general block grants. 128 The National Park Service only maintains park facilities in non-urban areas at great distances from population centers. Block grants will be distributed for non- specific uses and park and recreation agencies will have to compete for funding along with other municipal services. Inflation Local agencies are experiencing a cost- revenue crisis that will not diminish in a steady state economy coupled with rapid inflation. Agencies cannot expect needed financial help from the federal government, states or counties for the same reasons. Drastic cuts in park and recreation ser- vices will be necessary just to keep pace with inflation if new funding cannot be obtained. Maintenance and Operation Funds Existing recreation opportunities in urban areas suffer severely from a shortage of operation and maintenance funds. Because of inflation it is necessary to continu- ally increase these funds just to maintain existing levels of service. The addition of any new parks or facilities substan- tially increases the level of necessary funding, many times exceeding local tax- base limitations. Public Safety and Vandalism Preventing vandalism and protecting the safety of park users and staff members has become a serious problem in most areas. The diversion of funds from tra- ditional service areas to these areas de- creases the ability to expand or renovate recreation resources. Population The increasing average of age of the na- tion's population, increased life expec- tancy, and the extension of recreation to these segments of the population necessi- tates the creation of new programs to non- traditional age brackets. Special Populations Most urban leisure spaces and services do not adequately serve the needs of chil- dren, the elderly, the poor, the handi- capped, or ethnic minorities. Agencies must take into consideration the recrea- tion needs of special segments of the population in developing priorities. In most areas, the needs of all population groups are not being adequately met. Only in recent years have agencies begun to recognize an obligation to provide re- creation for the handicapped and deprived. Fitness Movement An increasing emphasis on remaining phy- sically fit is changing peoples' recrea- tion patterns. More people in more age brackets are participating in physical fitness activities. Increases in jogging, running events, and heaJth and fitness clubs are just some examples of this move- ment. People also tend to stay active for longer periods of their life in recreation activities. Local Influencing Factors Introduction The MetrOpolitan Area General Plan in its "Parks and Recreation Element" recognizes a number of factors influencing both the supplier's and users of the metro area's park and recreation facilities. Those in- fluencing factors contained as "Findings" in the Plan include the following: 1. Increases in leisure time, income, transportation energy costs, and pro- jected population growth indicate that there will continue to be a significant demand for a diversity of park and re- creational opportunities in the metro- politan area. 2. Regardless of what standard is used, it is becoming increasingly difficult for local park agencies to meet the demands and needs of the community for parks and recreation facilities. The major problems include: a. Areas developing without park and recreation facilities available for the residents. b. Competition for limited available financial resources between the need to purchase park land to meet future demands (before the land is no long- er available) and the need to devel- op existing park land to meet cur- rent demand. c. Competition for limited financial resources to provide the diversity of park and recreational programs by the community's citizens. d. Land suitable and available for park and recreation facilities often com- petes with other land use activities and needs in the metropolitan area. In addition to those factors cited in the MetrOpolitan Area General plan, Willama- lane recognizes a series of seven more specific factors that influence the recre- ation demand and behavior of the Dis- trict's service population. 129 Location The location or availability of a recrea- tion area or facility can have a direct influence on future recreation demand. Ease of accessibility may insure high rates of use. Distant areas or facilities only accessible by automobile and not served by mass transit or close enough for pedestrian or bicycle access may ex- perience reduced or low levels of use. The District's large annexation in 1978 has further increased the importance of the location of parks and facilities as a local influencing factor or recreation demand. The district is now approximately three and a quarter miles north-south and nearly ten miles east-west. Large tracts of industrial zoned land serve to separate the area of the "old" district from the newly incorporated area. Due to the Dis- trict's extended linear form, location of parks and recreation facilities is now more than ever a key element relating to recreation demand within the District. Cost The cost of an activity to users can also be used to predict future recreation de- mand. An activity to users can also be used to predict future demand. An ac- tivity, or activities that require costly specialized equipment or high facility or participation costs may reduce or limit demand to specific segments of a popula- tion. Willamalane recognizes the influ- ence cost can have on recreation demand. In the case of many of Willamalane's pro- grams the District supplies all necessary equipment and facilities at a fraction of the "real costs" so that recreation oppor- tunities are truly available to all seg- ments of the District's population. Quality The acceptable degree of quality is a per- sonal factor which is difficult to measure 130 but nevertheless has an effect on the de- mand for recreation areas and facilities. In terms of areas for recreation use there may be what is called a "psychological car- rying capacity" which will determine whe- ther or not a person or persons will visit a particular area. Some people will pre- fer an area where there are other people; others will avoid an area where many people are present. The quality of recreation facilities is another major factor affect- ing the ability of the District to meet its programming needs. Both for the partici- pants and the District's sake the facili- ties must be planned, designed, constructed and maintained at a level of high quality so that they may be fully utilized for many years. Maintaining the quality of parks and facilities is a constantly on-going process for the District. The quality of older existing parks and facilities is constantly being reviewed to assure their quality is maintained as their levels of use increase. Periodic renovation or re- modeling takes place as is necessary to maintain the District's facilities high standards and to assure that they remain fully available for recreation programming and use. Population Population characteristics affect the re- creation demand of a specific locale or area. Age, sex, and population distribution are all variables acting upon demand. wil- lamalane has less than 10% of its population over 65 years of age. Females make up a slightly larger portion of this population group. The single, largest population seg- ment is the District's youth less than 14 years of age. This segment represents more than a third of the District's population. Males represent the largest portion of this segment. The second largest population group within the District is comprised of persons between 25 and 44; the young working age people of the District. Male and fe- male distribution is approximately equal. Persons 15 to 24 are the third largest pop- ulation segment, with females out-numbering males by almost 20%. Persons 45 to 64 are the second to the smallest age group with female and male segments nearly the same in number. participation patterns of the different sexes within the Willamalane District have se~n a substantial change in the last de- cade. Today more females of all age groups are participating in active or competitive sports programs. A significant change in demand has occurred in older segments of the District's popula- tion. As a whole, people are engaging in recreation activities at far older ages than have been seen before and the Dis- trict's programming has had to adapt to meet these increasing demands. Willamalane has further increased its pro- gramming to answer the recreation demand of another segment of the population. A full time Resource specialist is now employed for Specialized Recreation demands of the District's physically, mentally, or emo- tionally handicapped. Income The demand for some recreation activities has been shown to correlate with the income of segments of the population. Activities such as golf, downhill skiing and boating receive more participation from income groups significantly above the median income of the population of the Willamalane service district. Income used for recreation is usually considered a part of a household's disposable income. The difference between the average costs of living for the District and the median income of the population can be an indicator of how much is left for ac- tivities including recreation, and may relate to potential demand. The median in- come of the population of the City of Springfield and thus of the Willamalane Dis- trict has been shown to be less than the median income of the State. This fact heightens the importance of Willamalane providing the highest quality recreation opportunities and leisure programs at the lowest cost to the participant and to the District's taxpayers. Leisure Time Many predictions have been made regarding increased leisure time, but to date the documented changes have been relatively in- significant. Enforced leisure time relat- ing to unemployment, retirement, and ill- ness has risen, but it is difficult to de- termine the actual effect this has had on recreation demand. Other factors are also changing leisure time. In many areas schools are remaining open year round with vacations at differ~nt times of the year. Locally, there has been talk of starting public school later in the fall rather than the traditional Monday after Labor Day, thus allowing vacations to extend longer during what is usually a good weather time. Another factor that may affect leisure time is the prediction of energy shortages in the Northwest during the 1980's. If these en- ergy shortages do occur and substantial increases in energy costs occur for peak- hour use, industries may alter or redistri- bute major work hours. If these and other changes do occur it could decrease the de- mand for extended programming and overall participation patterns. A major block of leisure time exists for most of Willamalane's population during weekend periods. In addition much of Wil- lamalane I s "working age" population is employed in manufacturing and industrial jobs. Those doing shift work during non- traditional business hours have large seg- ments of their leisure time also during non-traditional hours. To meet the recre- ation demands incurred by these segments of the population Willamalane is working to extend its programming and availability of recreation facilities during weekends, evenings, and early morning hours. Mobility Recreation travel is a common occurrence as is evidenced by highway traffic on holidays and weekends. The increased cost of gaso- line in the last ten years has brought a significant decrease in recreation travel and has started the public thinking about where they live in relation to work, shop- 131 ping, mass transit and recreation facili- ties. A study by Pacific Northwest Bell in 1975 found that half of those interviewed would change their recreation patterns and vacation plans if gasoline increased 20 to 30 cents a gallon. Fifteen to twenty-three percent of these people would cancel their vacation plans, while another twenty-five percent would take vacations but reduce the distance traveled. Since that study, gas- oline prices have doubled and recreation patterns have dramatically altered. An unpublished study conducted in 1975 by the Oregon Department of Transportation showed that State Park visitation would be reduced by about 80% if gas rationing were put into effect. Gas rationing never occurred but what people were saying then, is now occur- ring: As the cost of travel increases people recreate closer to home. The gas shortages in the late 1970's dramatically showed this relationship as tourism for the state and the local area severely dropped. In addition to those persons whose mobility via the automobile is reduced due to in- creasing costs of fuel, Willamalane recog- nizes that significant portions of its ser- vice population must rely on transportation modes other than the automobile. Both the District's senior population and the large segment of its youth population under 16 years of age have limited or no access to the automobile as a means of transportation. For these persons mass transit, bicycling, and walking are their primary sources of mobility. To be effec- tive at providing recreation opportunities for all segments of its service population, Willamalane recognizes its park and recrea- tion facilities must be designed and located in such a way that they are accessible to persons of limited mobility. Labor Force Changes in the composition of the county's labor force are increasing the demand for recreation programs for school age chil- dren. Large numbers of households are now finding it necessary to have both parents employed to meet their economic needs. 132 There is also a growing number of single parent households where the parent is em- loyed. These factors contribute to a sit- uation where many children have no parents at home for supervision and care after school hours. The school district and Willamalane can help remedy the situation by providing afternoon recreation programs and additional school bus options for the late afternoons. A brief examination of the Lane County la- bor force provides an illustration of the magnitude of these increasing recreation needs. Estimates of the labor force were provided by the State of Oregon Employment Division for the final quarter of 1981. The current population estimate for the entire county is 275,226 with a labor force numbering 186,300. Of the 186,300 persons in the labor force 130,000 are males and more than 30 percent, 56,300 are females. Employment Division employees cautioned that these estimates are consid- ered to be low in that they do not include those persons currently unemployed and de- siring work, but not able to qualify for unemployment, nor do they account for those additional persons who are not seek- ing work now but would if jobs were more readily available. Standards Introduction Park and recreation standards have been developed at national, state, and local levels to provide useful and flexible guidelines for the planning, acquisition and development of park lands and recre- ation facilities in metropolitan areas. The Statewide Comprehensive Outdoor Recreation Plan explains the need for standards as follows: Demand for many outdoor recreation activ- ities is dynamic; a population's wants and needs for recreation facilities may decrease or increase rapidly, or remain static. In order to meet these fluctuating needs, some kind of planning guidelines must be devel- oped to provide direction and efficiency to recreation facility development. An out- door recreation standard is such a planning guideline. It should be remembered that standards are "relative" rather than "absolute" require- ments. They sho~ld serve only as guide- lines or criteria for planning and decision making. More than anything else, they are an aid in identifying deficiencies or sur- pluses in the provision of existing and fu- ture park and recredtion opportunities for a given metropolitan, community or neigh- borhood population. The application of standards at a local le- vel for planning purposes mUst only be done when the standards applied are truly repre- sentative of a local community's needs. Standards should be "localized" before they are applied. The National Parks and Recre- ation Association (NRPA) suggests, " to be effective, in any situation, standards should satisfy certain criteria: 1. They 11IJst reflect the needs of the peo- ple in the specific area being served. 2. They 11IJst be reasonably or substant.ially attainable; or adequate alternatives de- vised 3. They must be acceptable and usable to the practitioner and policy maker. 4. They must be based on sound principles, and the best available information. 5. They must stand the test of time. NRPA and SCORP Standards Both the National Recreation and Park As- sociation (NRPA) at the national level and the Oregon Parks and Recreation Branch of the Department of TranSportation in its Statewide Comprehensive Outdoor Recreation Plan have developed park and recreation standards to be used as guidelines for planning by local agencies and districts providing park and recreation services. The accompanying charts briefly describe their respective recommendations for park acreage standards. A complete description of NRPA and SCORP standards for both park acreage and recreation facilities is con- tained in the AppendiX. NRPA PARK ACREAGE STANDARDS PARK CLASSIFICATION ACRES/POPULATION MINIMUM ACRES Neighborhood 2.5 I 1000 5-20 District 2.5 I 1000 20-100 Metropolitan 5.0 I 1000 100 + Regional 20.0 I 1000 250 + SCORP PARK ACREAGE STANDARDS PARK CLASSIFICATION ACRES/POPULATION MINIMUM ACRES Neighborhood 5.0 I 1000 Less than 15 Community 10.0 I 1000 15-20 District 15.0 I 1000 15-200 Regional 25.0 I 1000 100 + '33 134 Willamalane Standards Willamalane has developed a series of park and recreation facility standards in order to facilitate the planning and development of park and recreation resources. These standards are similar to those established nationally by the NRPA and at a state-level in the SCaRP documents. However, all of the standards adopted by Willamalane have been "localized" according to existing lo- cal conditions and influencing factors pre- viously described. Willamalane park standards are an extension of the District's park classification sys- tem. The standards follow the same classi- fications but add further detail regarding park requirements. Standards for recrea- tion facilities are organized in a similar fashion according to the park classifica- tion they would most often be associated with. Standards for major recreation fa- cilities utilize quantifiable figures re- flecting the population ratio method, where appropriate. Other facilities, for which quantifiable standards do not apply, have qualitative descriptions of acceptable standards contained in the Glossary. PRIVATE RECREATION FACILITIES PRIVATE FACILITIES: • Bowling Alleys • Camping Facilities • Equestrian Facilities • Golf Facilities • Ice Skating Rinks • Indoor Raquet Clubs • Indoor Shooting Range • Indoor Tennis Clubs • Outdoor Recreational Vehicle Areas • Roller Skating Rinks WILLAMALANE STANDARDS NEIGHBORHOOD PARKS & RECREATION FACILITIES MINIMUM SIZE: 5 ACRES SERVICE POPULATION: 2,500 - 4,000 SERVICE RADII: I-I f.lILE AREA STANDARD: 2.0 ACRES/lOOO POPULATION All Neighborhood and Optional Facilities will be coordinated and approved by local service units/neighborhoods. NEIGHBORHOOD FACILITIES: • Benches For Sitting • Childrens play Area • Hard Surfaced Walkways With Handicap Access • Open Play Area • Picnic Facilities * 1, picnic tables 2. picnic benches * half the picnic facilities should also include picnic shelters • Tot Play Area OPTIONAL FACILITIES: • Basketball Half-Court • Bike Paths • Horseshoes • Jogging Paths • Multi-Purpose Court • Neighborhood Centers SUPPORT FACILITIES: • Drinking Water • Handicap parking • Irrigation • Lighting for Safety • Minimum parking as Necessary 135 WILLAMALANE STANDARDS COMMUNITY PARKS & RECREATION FACILITIES MINIMUM SIZE: 10 ACRES SERVICE POPULATION: 4,000 - 10,000 SERVICE RADII: ~-2 MILES AREA STANDARD: 2.5 ACRES/lOOO POPULATION Community parks may also serve as Neighborhood parks and in such cases will include all of the facilities typical in Neighborhood parks. In addition some of the following community facilities will be included in each Community park, dependent upon whether a centralized or satellite facility is planned: COMMUNITY FACILITIES: STANDARD (FACILITY/POPULATION) • Baseball Diamonds * 1:6,000 * One third of the diamond facilities shoUld have night lighting • Bike Paths • Community Centers 1:25,000 • Community Gardens • Football/Soccer Fields 1:3,000 • Horseshoe Areas • Indoor Aquatic Centers 3% of population @ 24 sf/person • Jogging paths/Fitness Courses • Multi-Purpose Lawns • Multi-Purpose Fields • Softball Diamonds * 1:3,000 * One third of the diamond facilities should have night lighting • Tennis Courts * 1:2,500 * Half the facilities should have night lighting SUPPORT FACILITIES: • Drinking \'later • Electrical Outlets • Irrigation • Lighting For Safety • Off-Street Parking • Restrooms 136 METROPOLITAN PARKS & RECREATION FACILITIES MINIMUM SIZE: 20 ACRES SERVICE POPULATION: 10,000 - 50,000 SERVICE RADII: 2-5 MILES ACREAGE STANDARDS: 2.0 ACRES/lOOO POPULATION METROPOLITAN FACILITIES: STANDARD (FACILITY/POPULATION) • Archery Range 1:50,000 • Bicycle Motocross Area • Bike Paths • Boat Ramps 1:10,000 • Camping Facilities • District Offices • Fishing Access • Group Picnic Areas • Hiking Trails • Individual Picnic Facilities • Jogging Paths/Fitness Course • Maintenance Facilities • Natural Areas • OUtdoor Theaters 1:50,000 • Shooting Range 1:50,000 • Swimming Beaches • Vista Points REGIONAL PARKS & RECREATION FACILITIES MINIMUM SIZE: 100 ACRES SERVICE POPULATION: METROPOLITAN/COUNTY POPULATION SERVICE RADIUS: 1 HOUR DRIVING TIME • REGIONAL FACILITIES: • Bike Paths • Camp Facilities • Equestrian Facilities • Fishing Access • Group Picnic Areas • Hiking Trails • Historic Areas • Individual Picnic Facilities • Natural Areas • Outdoor Recreational vehicle Areas • Swimming Beaches 137 Expressed Needs Introduction Needs analysis is perhaps the most cru- cial and complex component of compre- hensive recreation planning. No compon- ent of recreation planning is more cen- tral to the comprehensive planning pro- cess. Needs analysis must synthesize the supply and demand components of the plan to develop relative measures of deficiency or surplus that can be used to formulate goals, objectives·, policies, and priori- ties for future District action. Recreation needs are generally defined as the difference between existing and future recreation demand and the existing supply of recreation opportunities. These needs are translated into requirements for fu- ture park areas and recreation facilities through the use of local standards. Lane County Needs The Statewide Comprehensive Outdoor Recre- ation Plan in the Needs Bulletin of 1977 established a series of "high priority" needs for Lane County and the area covered by the Lane Council of Governments. This was done in accordance with an agreement between the Bureau of Outdoor Recreation and the Department of Housing and Urban Development. The stated purpose of the Needs Bulletin was as follows: 1. To provide local agencies with needs data for their jurisdiction so they can give adequate consideration to recrea- tion needs in the comprehensive plan- ning process. 2. To provide guidelines for the distribu- tion of funds for recreation facilities and areas. 3. To provide base data for determining policies, recommendations and guide- lines that will direct the efforts for meeting recreation needs. 138 The techniques employed for this needs analysis involved elements of both citizen input and statistical analysis. A de- scription of the process from the SCaRP Needs Bulletin follows: County needs were derived from public in- put at meetings. Data from the priority listings of various county liason officers and the results of statistical analysis were also used to determine county needs. Emphasis for determining needs was placed on the pUblic comments received at the various meetings and supplemented by other information. In counties with large pop- ulations the more accurate statistical data is given increasing emphasis. To further qualify the accuracy of this method of needs analysis the SCaRP Needs Bulletin makes the following statement relative to the citizen input element of the process: "participants at the public forums did not necessarily represent all citizens of a given county." The Bulletin further states: A listing of the high priority needs is made for each county. This is a general list ... The reason for this approach is to encourage the counties and cities to de- termine their own level of recreation re- sponsibility and priority. Counties are also encouraged to include this informa- tion in comprehensive plans. The prior- ities and responsibilities can be included in whatever detail desired. Since the SCORP will recognize the needs assessments from the comprehensive plans, the more ex- plicit the information the better chance an agency will have to get their projects funded. High priority needs as assessed in the 1977 SCORP Needs Bulletin are as follows: Indoor Pools walking trails Hiking trails Bike trails Multiple use trails Ballfields All-purpose c~urts Tennis courts Lakes and r~servoirs Access to streams & rivers ORV trails and areas Historic sites Natural areas Campsites Boat launch lanes Neighborhood parks Conununity parks District parks Regional parks While the NRPA standards provide a useful comparison, they should not be used as the determinant of the adequacy of the park and recreation facilities provided by each jurisdiction. A determination of the ade- quacy must be based not only on total acres or facilities, but also on the val- ues of the residents, the location of park and recreation facilities in relation to the residents each is intended to serve, the specific function each park is intend- ed to serve, and the role private facili- ties play in providing recreation oppor- tunities. Further study of Lane County recreation needs was undertaken as a part of the Lane County Parks and Open Space Plan. The re- creation needs were addressed separately for the Eugene-springfield Metropolitan Area and the remaining thirteen sub-areas of the County. A further and more specif- ic discussion of the County Master Plan and its assessment of the projected recre- ation needs for the metro area will follow. Metropolitan Area Needs A generalized needs assessment for the metro area is included in the Parks and Recreation Facilities Element of the 1980 Metro Atea General Plan. The needs assess- ment was made without the aid of a current and complete inventory of the area's park and recreation facilities. The estimated current supply was tabulated through a va- riety of sources inclUding technical re- ports, plans and agency personnel. No lo- cal standards were established as a part of the Plan's development. instead the es- timated existing supply was compared to NRPA Standards in order to establish metro area park and recreation needs. The sum- mation of the findings related to metro area park and recreation needs follows: • Based on NRPA standards, the metropol- itan area currently lacks an adequate number of swimming pools, tennis courts golf courses, and other recreational facilities (such as ball fields, all- purpose courts, etc.). Providing adequate park and recreation fa- cilities is made more difficult by the lack of a detailed metropolitan-wide parks and recreation analysis and plan that in- corporates a methodology reflecting demand characteristics of this local area. SUch an analysis and plan would serve a number of essential functions, including: • The development of a complete inventory of park and recreation facilities; the developnent of local standards for use by the local governing bodies in deter- mining the type and level of parks and facilities that are needed; the devel- opment of demand effectiveness measure- ments; and the development of capital improvements programming and other im- plementation strategies. • Indication of how much land is needed for each type of park (regional, com- munity, neighborhood, etc.); and indi- cate what types of activities should be provided in each park (e. g., acti ve re- creational opportunities such as ball fields, tennis courts, and playgrounds vs. passive recreational opportunities such as hiking trails). • Indication of how the resources of the local and state park agencies can be coordinated and maximized in order :or each agency to provide the level and type of recreational opportunties for whiCh it is best suited. 139 • Indication of where the advance purchase of park land should occur in anticipa- tion of future demand. When compared to NRPA standards, there is a gap between the overall supply and de- mand for park and recreation facilities in this community. This gap is projected to increase unless additional park land and recreational facilities are provided. • Based on NRPA standards, there are suf- ficient gross acres of regional- metropolitan park land to meet a future metropolitan population of 246,000. But gross acreage does not accurately reflect the adequacy of regional- metropolitan parks to meet both active and passive recreational needs, and a more detailed analysis of regional park supply and demand is necessary. • Based on NRPA standards, the supply for community park land is less than what is currently needed. • Based on NRPA standards, the supply of neighborhood parks is less than what is currently needed. • Based on NRPA standards, there are enough community centers to meet demand of a future metropolitan population of 195,000. However, existing community centers are not evenly distributed throughout the metropolitan area. • Based on NRPA standards, there is a de- ficiency of neighborhood centers. As was previously discussed, another very generalized recreation needs assessment covering the metropolitan area was under- taken as a part of the Lane County Parks and Open Space Master Plan. Questions of accuracy regarding the data arise because of the methodology used in obtaining it. In many instances the inventory of exist- ing recreation opportunities is either in- complete or inaccurate. A case in point is Willamalane Park and Recreation District being credited in the Plan with maintaining 140 only two parks, Island Park and Willamalane Park. The Plan also contains a reference to Willamalane's "Dorris Tract" actually known as Dorris Ranch. Willamalane in fact owns and maintains eighteen developed and five undeveloped park and recreation facil- ities. The Plan's method for assessing existing and future recreation demand was based solely on population projections. The as- sumption is that population will increase by 39 percent in the metro area by 1995, therefore recreation demand will remain essentially the same but will increase by 39 percent during that period of time. projected needs for recreation opportuni- ties were only made for five types of re- creation facilities: picnic units, tent sites, boat ramps, swimming areas and water sports. These selected existing facilities were then listed according to the agency or district now providing them and pro- jected needs were assessed by increasing them 39 percent. Implicit in this assess- ment was the responsibility of each agency or district to provide the facilities in the future as assessed by the County. In- herent in this methodology are a number of assumptions. The first is that the exist- ing supply of recreation opportunities ade- quately meets the needs of the existing me- tro area population. The Recreation Ele- ment of the Metro Area General Plan pre- viously cited clearly states this is not the case. The methodology also assumes that population growth will be evenly dis- tributed throughout the metro area in the future. Data received from the "1980 census shows this has not been the case since 1970 and planning for the future should recognize that the greatest needs will be in areas with the largest population growth. Local Expressed Needs Willamalane recognizes both the need and the value of citizen input regarding its planning for future park and recreation opportunities. Willamalane's organization as a special service district embodies the notion of citizen input and decision making throughout its structure. The District's Board of Directors act as a first link in this chain of citizen involvement. The five members of the Board are all unpaid, citizen decision makers elected from the District at large by a vote of the Dis- trict's citizenry. They make the necessary decisions to direct all major staff opera- tions and establish the priorities for even larger decisions made by the entire citi- zenry of the District through the voting process. All Board meetings are open to the general public and have time set aside for interested persons to speak. Other links in the chain of citizen input and decision making are the Citizen Advi- sory Committee for the Comprehensive Plan, the Capital Improvement Committee and the Willamalane Budget Committee. All three committees act in an advisory capacity to the Board of Directors in varied, yet in- terrelated spheres, and all are made up of citizens from the District at large. The Citizen Advisory Committee for the Com- prehensive Plan works with the Board of Directors, staff members and consultants in preparing all facets of the Comprehensive Plan and future Annual updates. The Com- mittee's primary tasks in the first compre- hensive planning process were establishing goals, local park and recreation facility standards, and subsequent recreation needs for the District. The Capital Improvement Plan Committee also works with the Board of Directors and the Willamalane staff in an extension of the comprehensive plan process. Many of the members of the Citizen Advisory Committee for the Comprehensive Plan also serve on the Capital Improvement Plan Committee pro- viding continuity of citizen input in the planning process. Recreation needs estab- lished in the Comprehensive Plan are prior- itized and then appropriate funding sources or methods are identified by the Capital Improvement Plan Committee. These priori- ties and funding methods are then recom- mended by the Committee to the Board of Di- rectors for formulation into a five year Capital Improvement Action Plan. Annual Updates of the Comprehensive plan allow for adjustments to the Action Plan as new or changing recreation needs are identified. The willamalane Budget Committee is made up of five citizens serving three year terms who are selected by the District's Board of Directors. The Budget Committee oversees and works with the Board in approving all budget items and allocations identified and recommended by the Willamalane staff. In addition to these three formalized cit- izen input groups willamalane is open to more informal citizen input occurring on a daily basis. Prior to the implementation of any new park and recreation facility construction, willamalane holds plan re- view meetings open to the general public for final design and planning feedback. These meetings may be held for a single service unit or many service units depend- ing on the size of the population and the service areas intended to be served by the new park or recreation facility. Willamalane also receives valuable citizen input through phone conversations made to the District office and via public discus- sions occurring at various Willamalane public information meetings. Although not scientific in their method these random samplings do provide valuable insight to the District regarding the recreation needs as perceived and expressed by its general citizenry. As this input is categorized it becomes evident that many of these sim- ilar expressed needs can be aggregated to identify major issues facing the District. In most cases these expressed needs fall into categories of deficiency regarding both the number and type of existing parks and recreation facilities. The second most pressing issue expressed by the citizenry regards the location and accessibility of existing recreation opportunities. A 141 brief outline of these expressed needs fol- lows: • As was noted previously the City of Springfield annexed much of the area east of 42nd Street in the 1960's and 1970's. These areas were not, however, annexed into the Willamalane Park and Recreation District until voter approv- al was achieved in 1978, Because of this, tax dollars for parks and recre- ation facilities were not collected from these areas nor were park lands acquired or developed until annexation took place. Consequently one of the most commonly expressed needs is for more park and recreation facilities on the east side of the District. • The expressed needs for new parks most commonly refer to deficiencies of neigh- borhood and community parks in many ser- vice areas throughout the District. People want parks in close proximity to their residences so that they and their children can walk to them. Persons that have to drive to parks outside their service area also complain about the lack of adequate parking opportunities at both neighborhood and community parks. Until such a time as all areas are adequately served by neighborhood and community parks significant numbers of people will continue to need to drive to recreation opportunities and there will be a continued need for increased parking at existing facilities. • Needs expressed by the citizens on the west side of the District usually center on renovating and upgrading existing neighborhood park and recreation facil- ities. Many of the older neighborhood parks are now considered sub-standard in size according to Willamalane's adopted park and recreation standards. These often include recreation facilities in- appropriate to the scale of the park such as softball diamonds located in small neighborhood parks. Many of these parks include metal backstops and dia- monds intended for informal, pick up games. The outfields are usually much too small to accomodate any formal or 142 league play. A well hit ball can easily end up in neighbors yards and there have been incidents where windows were bro- ken. A variety of problems arise when league teams use these facilities as practice diamonds. The numbers of cars they drive to the park cause parking problems and the numbers of players us- ing the facility sometimes exceeds the "psychological carrying capacity" for other potential park users. The need for more adequate softball facilities in the District would help relieve this problem and so would the renovation of these smaller parks to include recrea- tion facilities more appropriate to the scale of these parks. • Expressed needs regarding community parks and facilities are two fold: renovate or remodel existing commun- ity facilities on the west end of the District and secondly plan and construct new community facilities on the east end of the District. Existing metropolitan and community fa-· cilities on the west side include Island Park, Willamalane Park, Guy Lee Park, the Memorial Building and the Senior Adult Activity Center. Needs have been expressed for the renovation or expan- sion of all of them. Island Park is showing signs of deterioration from pe- destrian erosion and other aspects of over-use. The park has been master planned to accomodate current use but the plan has not been implemented. Wil- lamalane Park needs additional parking and ancillary space for support services at the pool. The lighting at the tennis courts needs upgrading and so do the softball diamonds. The Memorial Build- ing has needs which are two fold and at times conflicting. The District is con- stantly in need of expanding its admin- istrative spaces and offices while nu- merous other renovations are necessary to maintain the Memorial Building as the District's only community center. The final phase of the site plan for the Senior Center has yet to be con- structed. The expressed need for community facil- ities on the east side concentrate on two different recreation facilities. Softball facilities for league play is one major need and will be satisfied to a degree when plans for Bob Artz Memor- ial Park are constructed. The other major need is for a community aquatics center on the east side. • One of the most commonly expressed needs is for more conveniently located District offices. Currently all regis- tration and fee collection for District programs takes place at the offices housed in the Memorial BUilding. The common conc~rn is the long drive neces- sary from eastern and outlying portions of the District and the lack of ade- quate parking in the area of the Memor- ial Building. Any expansion of office spaces in the Memorial Building will take away from community recreation spaces now being utilized. These two problems are indicative of need for fu- ture relocation of District offices and administrative services. • A special interest group composed of archers has approached the District re- garding the need for a metropolitan archery range. At one time a range and archery field course was constructed and used at Dorris Ranch, but because of problems with regulation and liabil- ity the District was forced to close this facility while environmental stud- ies were conducted at Dorris Ranch. • The need for additional fishing accesses and improved boat ramps has also been expressed to the District. Additional development and paving is needed at the ramps in Island Park, Alton Baker Park near the Canoe Canal intake and at Hay- den Bridge near the EWES water intake plant. An additional landing in the McKenzie River is needed between the ex- isting ramps at Hayden Bridge and Dead- monds Ferry. • The final expressed need is for more close-in camping opportunities for both District residents and visitors to the area. The only improved camping area in the metropolitan area is a state fa- cility located in Armitage Park which is full most times throughout the sum- mer. A facility provided by the private sector such as KOA or the development of camping facilities at an under util- ized county site such as Clearwater Park could conceivably relieve this expressed need. Willamalane Needs Introduction The existing and projected recreation needs for the willamalane Park and Recreation Dis- trict have been compiled from a number of different factors and are based on Willama- lane's localized park and recreation facil- ity standards. Factors contributing to these recreational needs includes: recrea- tion demand (population projections, re- creation trends and local influencing fac- tors); existing supply of recreation re- sources and opportunities; and county, me- tropolitan area and local expressed needs. By far the largest needs for the District as are shown in the three accompanying charts are local, neighborhood and commun- ity parks and recreation facilities. All three charts display the existing needs (1980) and projected needs for the year 1985 and the year 2000 based on the fac- tors outlined previously. Gross Need The first chart displays gross need for parks and recreation facilities for the three planning time frames according to the established willarnalane standards. Gross need based on the Willamalane stand- ards does not take into account existing parks and recreation facilities within the District. 143 Net Need The next two charts display net need for the District. Net need is calculated by subtracting the existing recreation op- portunities from the gross need. The first chart, Net Need #1, shows the net need when only Willamalane's existing re- creation opportunities are subtracted from the gross need for the District. The sec- ond chart shows net need when the total existing supply of recreation opportunities, including those supplied by School District #19 and Lane County, are subtracted from the gross need figures. The second chart, Net Need #2, is the more accurate represen- tative of recreation needs within the Dis- trict and these will be the net needs that Willamalane will base its future expansion programs on. The chart clearly shows how School District #19 and Lane County facil- ities compliment those currently supplied by Willamalane and how reliant Willamalane residents are on recreation opportunities supplied by a number of public agencies. The chart also points out how important cooperation is between these public agen- cies in supplying a total recreation system to the area's residents. Net Need #2 shows that the highest priority needs for Willam- alane are the development of new neighbor- hood and community parks and recreation fa- cilities. The existing net need for 1980 is 11 additional neighborhood parks and 10 additional community parks. By 1985 the net need will have increased to 15 neigh- borhood parks and 13 community parks if no new parks are added to the supply between now and then. Facility needs center primarily on the net need for additional community scale recre- ation facilities. Aquatics centers, soft- ball diamonds and football/soccer fields are the highest priority needs. The need for football/soccer fields will partially be answered when new softball facilities are constructed such as the one planned for Bob Artz Memorial Park. The plan calls for three multi-use softball diamonds that also can be seasonally switched over to two football/soccer fields as the need arises. 144 Need Prioritization A refined prioritization of Willamalane's net needs will take place after adoption of the Comprehensive Plan. In essence adop- tion of the Comprehensive Plan will embody adoption of Willamalane's park classifica- tion system, existing recreation area and facilities inventory, park and recreation facility standards, existing and projected needs and the District's philosophy, goal, objectives and policies. The adoption of the Comprehensive Plan signals a new era for the Willamalane Park and Recreation District. It establishes a process for planning and meeting the recreation needs of the District's residents and visitors into the twenty-first century. With adoption of the plan, members of the Citizen Advisory Committee for the Compre- hensive Plan, and Capital Improvement Plan Committee will work with the Willamalane staff in: refining the prioritization of the net needs established in the Compre- hensive Plan; identifying funding source alternatives for those prioritized needs; and preparing capital improvement plan packages and action plans for meeting those needs. The prioritized need, funding source alternatives, capital improvement plan packages and action plans will then be recommended to the Board of Directors for District action and implementation. PARK AND RECREATION GROSS NEED Gross Need Does Not Account For Existing Supply CLASSIFICATION STANDARD 1980 1985 2000 NEIGHBORHOOD Parks (5 acre minimum) 2.0/1000 97 (19) 117(23) 176{35) COMMUNITY Parks (10 acre minimum) 2.5/1000 121(12) 146(15) 220(22) Facilities -. Aquatic Centers 3% of pop @ 34780 sf 41945 sf 63439 sf 24 sf/person 4 5 7 • Baseball Diamonds 1.0/6000 8 10 15 • Community Centers 1.0/25000 2 2 4 • Football/Soccer Fields 1.0/3000 16 19 29 • Senior Centers 1.0/25000 2 2 4 • Softball Diamonds 1.0/3000 16 19 29 • Tennis Courts 1. 0/2500 19 23 35 METROPOLITll.N Parks (20 acre minimum) 2.0/1000 97 (S) 117(6} 176(9} Facilities • Archery Range 1.0/50000 1 1 2 • Boat Ramps 1. 0/10000 5 6 9 • Outdoor Theaters 1. 0/50000 1 1 2 • Shooting Range 1. 0/50000 1 1 2 KEY (S) number of parks = total acres/minimum size in acres - number of centers based on facilities equivalent in size to Willamalane Pool POPULATION PROJECTIONS . • 1980 48,306 • 1985 58,257 • 2000 88,110 145 PARK AND RECREATION NET NEED + 1 Supply Represents Willamalane Facilities CLASSIFICATION NEIGHBORHOOD Parks (5 acre minimum) SUPPLY 1980 9* 1980 10 NET NEED 1985 14 2000 26 COMMUNITY Parks (IO acre minimum) 2* 10 13 20 Facilities • Aquatic Centers 1 3 4 6 • Baseball Diamonds 0 8 10 15 • Community Centers 1 1 1 3 • Football/Soccer Fields 5 11 14 24 • Senior Centers 1 1 1 3 • Softball Diamonds 5 11 14 24 • Tennis Courts 12 7 11 23 METROPOLITAN Parks (20 acre minimum) 1* 4 5 8 Facilities • Archery Range 0 1 1 2 • Boat Ramps 1 4 5 8 • Outdoor Theaters 0 1 1 2 • Shooting Range 0 1 1 2 KEY 146 * Equivalent number of parks when total acreage of existing parks is divided by minimum size for park of that classification. PARK AND RECREATION NET NEED +2 Supply Represents willamalane, School District #19, and Lane County Facilities CLASSIFICATION SUPPLY NET NEED 1980 1980 1985 2000 NEIGHBORHOOD Parks (5 acre minimum) 9" 10 14 26 COMMUNITY Parks (lO acre minimum) 2" 10 13 20 Facilities • Aquatic Centers 1 3 4 6 • Baseball Diamonds 7 1 3 8 • Community Centers 4 ( 3) (3) (1 ) • Football/Soccer Fields 6 10 13 23 • Senior Centers 1 1 1 3 • Softball Diamonds 8 8 11 21 • Tennis Courts 14 5 9 21 METROPOLITAN Parks (20 acre minimum) 1" 4 5 8 Facilities • Archery Range 0 1 1 2 • Boat Ramps 5 0 1 4 • Outdoor Theaters 0 1 1 2 • Shooting Range 0 1 1 2 KEY (3 ) Indicates a surplus of facilities relative to net need. " Equivalent number of parks when total acreage of existing parks is divided by minimum size for park of that classification. 147 This chapter deals with Recreation Opportunities within the District including land and facilities which have not been covered in the Park and Recreation Needs chapter. These opportunities include other public lands within the District, private lands and facilities, and historic areas and sites. Urban Corridors such as streets, bike paths, pedestrian paths and utility rights of way are incorporated. This chapter also lists and maps Natural Corridors such as rivers, streams, sloughs, drainageways, and the Millrace. Public Open Space, which includes public lands, agricultural lands, forest lands and scenic areas of recognized value to the pUblic and community as a whole, have been discussed and mapped. Recreation Opportunities Introduction Recreation Nodes One way of looking at these recreation op- portw\ities and how they contribute to the area's =ecreation system is that there are four basic types of recreation components in the system and each recreation opportun- ity can act as at least one type of compon- ent. This simplified concept of a recrea- tion system views these recreation oppor- tunities or components as recreation nodes, urban corridors, natural corridors or as open space of value or importance to the general public. Until this point the inventory of recrea- tion resources and assessment of recreation needs has been primarily oriented toward Willamalane's parks and recreation facili- ties and the creation of areas or facili- ties provided by other Agencies both public and private. However, in assuring that a diversity of potential recreation experi- ences exist in the future for the commun- ity's residents, there are additional recre- ation opportunities within the study area which are of importance to the area's recre- ation system. Many of these recreation op- portunities have been documen~ed as physi- calor cultural resources in previous chap- ters. Both the importance and variety of recreation opportunities that currently exist within the study area cannot be over- stated. Their value in contributing to the area's recreation system as individual yet complimenting components must be recognized before these recreation opportunities are lost to other forms of development. RECREATION NODES ..----------- •• • I -. . - . •• - I1 ----- • Nodes • District Boundary -- Nodes in the context of city planning are collection points or strategic foci con- centrating particular activities or char- acteristics. Recreaeion nodes then are parks, recreation facilities, school grounds and open spaces that act as con- centration points for the area's residents recreation or leisure activities. As is shown in the accompanying illustration, recreation nodes are the major component of the area's recreation system. These provide the nucleus which the other three components further compliment and support. A discussion of different types of recre- ation nodes follows. The area's recrea- tion nodes are shown on both Map 14, Recreation InventOry and the accompanying Map 18, Recreation Opportunities. Parks and Recreation Facilities The existing parks and recreation facili- ties and needs for future development are all well documented in previous chapters. These are the recreation nodes or oppor- tunities traditionally thought of by most individuals when discussions of recreation needs, experiences, opportunities and sys- tems arise. They are perhaps the most im- portant components of a recreation system or the ones of highest priority. But their importance must not be overly regarded rel- ative to other recreation opportunities acting as supporting components in the sys- tem. Certainly one of the highest pri- orities for the District to capitalize on is the development of undeveloped park lands in the District's ownership. The 51st Street site for Bob Artz Memorial Park, 58th Street, 42nd Street, and Thur- ston Middle SChool Park sites all will con- tribute substantially to the supply of needed recreation opportunities on the eastern end of the District. The redevel- opment, renovation or completion of devel- opment plans for existing parks and recre- ation facilities in other areas of the District should also be a high priority. Plans for additional development or renova- tion have already been approved for Willarn- a1ane and Island Parks, as well as final 151 =phases of the Senior Adult Activity Center. Projects such as these would serve to in- tensify the use of existing facilities at a minimum expenditure to the District's taxpayers. In addition to these existing District re- creation resources there are numerous op- tions available to the District for answer- ing additional recreation needs. One op- tion is for the District to set about try- ing to acquire through purchase, all the lands necessary to answer the neighborhood and community recreation needs outlined in the previous chapter. However, this would be an extremely costly option for the Dis- trict and ultimately the area's taxpayers, and would leave the District with little or no capital resources for the development of these potential recreation resources. In an age of economic frugality, other op- tions for answering the area's recreation needs must be both considered and pursued. One such option that would reduce or en- tirely eliminate acquisition costs of lands, freeing more capital for develop- ment, would be cooperative development of recreation areas and facilities on lands already owned by the public agencies in the area. Public Lands and Facilities Within the area numerous public agencies own lands that are potential recreation op- portunities. These public agencies in- clude: School District #19, Lane County, Springfield utility Board, Rainbow Water District, Thurston Water District, McKenzie Water District, and to a small degree the Bureau of Land Management. The lands under the management and ownership of these var·· ied public agencies represent a tremendous stock of potential recreation opportuni- ties. School District #19 alone owns more than 350 acres of public lands of which nearly 90 acres are entirely undeveloped. As was mentioned previously, of the more than 260 152 acres of developed lands, it is estimated that only 25% of these lands actually are occupied by buildings, walkways, parking and other support facilities. Using a fig- ure of 25% for the developed acres, leaves just less than 200 acres of School District public lands that could in part provide op- portunities for the area's residents while minimizing the costs to taxpayers. By up- grading underdeveloped existing school grounds through formal cooperative agree- ments between Willamalane and the School District, the recreation resource base for the area could be vastly improved. In ad- dition, totally underdeveloped School Dis- trict sites such as Clearwater, Gateway, Garden Way, Rolling Oaks, and 51st Street could be developed in the near future as recreation opportunities. At the same time through cooperative planning and de- sign, those lands (approximately 25% of each parcel that would be necessary for school facility development in the distant future) could be set aside and held in re- serve. with the exception of Willamalane park lands, the lands owned by School District #19 represent the single largest reserve of public lands available for recreational development in the areas that are of a neighborhood or community scale. These lands, in essence, were paid for by the same taxpayers that support Willamalane's efforts to develop the area's supply of re- creation opportunities. To duplicate public expenditure for acquisition of public lands rather than pursue multi-use of public school properties, could be both unwise and unnecess~ry when viewed in terms of the tight economics facing public agencies and institutions of all types. The same move would also negate the potential development of any additionally acquired lands for other forms of development that would be public revenue generators. Another fact that must be considered is that many communities and public school systems are facing declining enrollment and potential school closures. Many times the older areas of districts are forced to close schools while other areas are experiencing large-scale new growth with subsequent demand for new educational facilities. Both Portland and Eugene, the State's two largest cities, are experienc- ing this; and it is reasonable to assume that Springfield will follow suit. The history of the American park and recrea- tion movement lies deeply rooted in the de- velopment and expansion of the nation's public education system, and indeed the fu- ture of both may be more reliant upon coop- eration ~ith cne another, than is commonly thought. School district lands in no way can answer all the area's needs for addi- tional recreational lands, but their po- tential in bolstering the recreation sys- tem at a lower public cost must be exam- ined. Lane County also owns underdeveloped pub- lic lands that are recreation opportunities for the area's residents. Clearwater Park's 48 acres along the Middle Fork of the willamette River, have a valuable re- creation potential for the community as do the east end and east addition of Alton Ba- ker Park and the Mt. Pisgah site where the future Howard Buford Recreation Area is be- ing developed. Clearwater, as an undevel- oped, heavily vegetated natural area, could conceivably be used as a site by the county for badly-needed camping facilities close to the metropolitan area. A camping facil- ity at Clearwater could double the stock of existing camping opportunities now provided 153 only by the state at Armitage Park. Alton Baker Park and Mt. Pisgah will aid in sup- plying both metropolitan and regional scale facilities. The location and size of these county parks, however, are metropolitan and regional in scale and not neighborhood and community in scale, which are Willamalane's highest priorities. The Lane County Parks and Open Space Master Plan adopted in 1980 and discussed previously in this text, con- tains a number of policy "statements that in essence state that the county will place a high priority on identifying and preserving prime recreational sites within the urban growth boundaries until such a time as they are needed for recreational development or until they are annexed into the city and park district boundaries. With coordinated planning between the two agencies, the county acting in this capacity could be of great aid to the district in assuring that future recreational lands will be available to Willamalane's residents. The final group of public agenc±es that have large reserves of public lands that could provide future recreational opportun- ities are the area's utility boards and wa- ter districts. Almost all own valuable tracts of land adjoining the area's two ma- jor rivers, the McKenzie and Willamette. These lands have in most cases been ac- quired for water supply needs and generally include water intake and filtration plants or well fields. Through cooperative agree- ments regarding planning, design and devel- opment, the utilities' specific facilities could be protected and vandal-proofed and at the same time public access and recrea- tion development could be negotiated. Most of these sites would provide addition- al valuable accesses to the rivers and could serve as links in the area's river side recreation system. Notable examples are the Eugene Water and Electric Board's Vitus Butte and Hayden Bridge sites along the McKenzie River and the Springfield Utility Board well field and South 28th Street adjoining the Springfield Millrace and the Middle Fork of the Willamette Riv- er. Additional public lands in the form of cor- ridors or rights-of-way owned or managed by 154 other public agencies, utilities or the State Department of Transportation will be discussed in subsequent sections on urban and natural corridors. Private Lands and Facilities Historically, until the formation of the Willamalane Park and Recreation District, people of the Springfield area enjoyed most of their recreation experiences on private lands. Today there still remain a number of private areas that allow public access and recreation. In addition an increasing number of private interests or businesses are providing facilities for people's lei- sure and recreation needs. These two kinds of recreation opportunities provided by the private sector are an invaluable resource in the area's recreation system. Willama- lane wishes to encourage the private sector in supplying recreation opportunities and in so doing provide direction and assist- ance wherever necessary or appropriate. Willamalane does not intend to compete with private suppliers of large-scale recreation facilities that provide needed recreation opportunities that are not a high district priority or that require a larger degree of capital investment than can be afforded by the district. To preserve public access on those private lands that are not yet posted "No Trespassing" both the public at large and Willamalane must work to keep the few abusers of these opportunities from spoiling and eliminating future possibili- ties for the rest of the public. In deal- ing with public use of private lands it must be remembered that the rights and pro- perty of the private supplier are of para- mount importance and mis-use may rem9ve "the recreation opportunity. Historic Areas and Sites The primary responsibility for preserva- tion of Springfield's historic resources lies with the City of Springfield. Infor- mation regarding preservation efforts by the city's Historic Research Coordinator, is contained in a report titled Historic Buildings of Springfield: 1980, compiled pursuant to LCD<:: Goal 5 "Open spaces, Scenic and Historic Areas and Natural Resources". To date five sites or struc- tures have been designated as "Historical Landmarks" within the city. Four additional sites or structures are potential "Histor- ical Landmarks" and another twenty-two have been suggested for this potential designa- tion. To date no historic districts have been designated by the city. Willamalane has supported the city's efforts in numer- ous ways, including financial support, pub- lic education and information distributed through the community schools program and by co-sponsoring and participating in spe- cial events. Willamalane has also pur- chased the historic Dorris Ranch property and at this time is determining potentials for its historic designation. The recreation opportunities afforded by a city's historic structures and sites have only recently begun to be realized by the area's residents. The donation by the city of the recently restored, "Historical Land- mark" P.P. and L. Building at 550 Main Street, for a year's time to be used as the city's first Springfield Historical Museum, further reinforces the area's awareness of its historic resource potentials. Many of the city's designated "Historical Land- marks" are within a few block radius of the Museum and both formal and informal walking tours could originate from there. It is hoped by the volunteer Museum Committee that the variety of activities, events and displays presented in the Museum's first year of operation will increase both pub- lic interest and support of historic pre- servation efforts by the City of Spring- field. Urban Corridors Urban corridors are linear urban outdoor spaces such as streets, sidewalks, pedes- trian paths, bikeways, and sometimes util- ity right of ways or corridors. They serve to link the area's recreation nodes together and to integrate them with other functions of the community. As recreation opportunities, these urban corridors have the potential to extend the recreation ex- perience from recreation nodes out into the remaining fabric of the community, in- cluding its urban, suburban and rural areas. Urban corridors can transform the area's recreation opportunities from a scattering of isolated areas into a fully integrated and accessible recreation sys- tem where all the parts are conveniently linked, and recreation or leisure experi- ences are continuous. URBAN CORRIDORS r ----- -.",__"_-11 I . Nodes I I • Urban Corridors I I I II________ -.I 155 The primary concern of urban corridors as recreation opportunities, is their func- tion in providing convenient, safe, and aesthetically pleasing pedestrian and bi- cycle linkage and access to and from the area's recreation nodes. Of highest pri- ority to Willamalane is the effectiveness of these urban corridors in moving persons from residential neighborhoods and schools to Willamalane's parks and recreation fa- cilities, and back again. Also of impor- tance is how well they aid persons in tak- ing advantage of the area's other recre- ation opportunities, or in the recreation opportunity or experience they themselves provide. A discussion of the varied types of urban corridors and the recreation op- portunities they provide follows. Streets The street system has traditionally pro- vided access for people to and from the area's parks and recreation facilities. The adequacy of this access has depended upon the location and level of develop- ment of the varied streets. Many of the area's streets have been fully developed to meet modern standards including as- phalt paving, curbs and gutters, land- scaped parkways and concrete sidewalks. Many others, however, are not built ac- cording to current standards. Some lack paving altogether and still others have some paving but lack curbing, gutters and sidewalks, and usually have open drainage ditches paralleling their length. With- out sidewalks the only place for pedes- trian traffic is on the roadway itself, posing many safety hazards. These same streets, because of their poor condition, can act as barriers rather than accesses to mobility for young children, senior citi- zens and persons with physical limitations. The City of Springfield has placed a high priority on upgrading portions of its street system that lack modern develop- ment standards. In so doing the city will inadvertently improve the area's recrea- tion system by upgrading its urban corri- dors. The removal of the open drainage ditches and construction of sidewalks will 156 make these urban corridors more convenient and functional for pedestrian traffic, and consequently the corridors will be safer. In addition, new street tree plantings will bring a more park-like quality to the character of these streets. Pedestrian Paths There was a time when the street system was sufficient to safely and conveniently handle normal pedestrian traffic to and from the area's parks and recreation fa- cilities even where no sidewalks were pro- vided. That time however, has passed. The higher speeds and increased levels of traf- fic today necessitate the need for entirely separate systems for pedestrian traffic. These pedestrian paths can either be modern concrete sidewalks paralleling the area's streets with handicap ramps at street cros- sings, or entirely separate paths independ- ent of the street system. Many of the area's newer residential and commercial de- velopments have successfully incorporated this second concept of independent pedes- trian paths in their construction. Wil- lamalane's primary concern with the area's pedestrian paths and sidewalks is assuring that they safely and conveniently facili- tate the movement of people to and from the District's neighborhood and community park and recreation facilities. A fully devel- oped system for pedestrian movement also reinforces the increasing trend of people walking as a form of recreation, a trend which is growing each year and a recreation form which rates as one of the highest on the national level. Bike Paths Springfield's bikeways are the most impor- tant series of urban corridors extending recreation experiences and opportunities out away from the area's recreation nodes and integrating them with other functions in the community. Springfield and the .'.. " Willamalane District are ideally suited for bicycle recreation and transit because of the area's predominantly flat terrain; the large number of recreation bicyclists in the area prove the point. Bicycling, like walking, has become one of the most popular recreation activities for people of almost all age groups. The area's existing bike paths and those planned as a part of the Metropolitan Area Bi~~eway Master Plan are shown on the accompanying Map 18, Recrea- tion Opportunities. Potential bicycle and pedestrian routes that Willamalane suggests would serve to improve the area's total recreation system are also shown on the map. These potential bicycle and pedes- trian routes were selected for safe, con- venient interconnections between recreation nodes and other community functions, or for connections between the community and its abundant open space recreation opportuni- ties. The main open space r~creation op- portunities capitalized upon are the area's abundant water-oriented natural corridors including the Willamette River Greenway and the McKenzie River. Three major potential routes in the west side of the District are shown on Map 18. The first is an extension of the existing bike path along the abandoned railroad right-of-way north of Hayden Bridge Road connecting to Armitage Park on the McKen- 157 zie. Another major route extends east from Armitage Park following the McKenzie River to Hayden Bridge and Vitus Butte. The route would follow the banks of the McKenzie River where possible and else- where would use the existing street system. The third major route follows the east bank of the Willamette River extending the existing route from Island Park south to, and around, Dorris Ranch. The path then heads east following the north bank of the Middle Fork of the Willamette River along the Willamette River Greenway until it con- nects with the bike path planned to paral- lel the future McVay Corridor (30/30 Con- nector). This planned bike path will cross the Middle Fork south of 32nd Street and connect Springfield to the Howard Buford Recreation Area in Mt. Pisgah. 158 The major potential bicycle and pedestrian route on the east side of the District is an extension of the existing east-west route following North G Street in west Springfield. This route would extend east over the railroad tracks and into the ad- joining residential neighborhoods, then proceed along the edge of the Weyerhaeuser industrial area to the residential neigh- borhoods west of the 1-105 freeway and the proposed Bob Artz Memorial Park on 51st Street. From Bob Artz Memorial Park the route would proceed east along the residen- tial neighborhood streets to a pedestrian overcrossing of 1-105. The route then continues east connecting Thurston High School, Thurston Park, 66th Street and Thurston Elementary Schools with adjoinir,g residential neighborhoods. This route is perhaps the highest priority bike and pe- destrian path relative to the community's recreation needs. This route could have immediate impact because it would safely and conveniently link the east end of the District with the community aquatic facil- ities at Willamalane Park and other recre- ation opportunities in the west end of the District. This route is much safer and more convenient than the planned route along Main Street. Another potential route in this area ex- tends south from Main street paralleling the planned extension of I-lOS to a point where it will intersect the Jasper-Lowell Road along the Hiddle Fork of the Willarn- ette River. The final potential route in this area, proceeds northeast from Bob Artz Memorial Park, crosses I-lOS at the existing signal at S2nd Street and eventu- ally connects with the Thurston Middle School Park site. Rights of Way Rights of way belonging to or managed by utility companies, water districts, rail- roads and the State Department of Transpor- tation extend and intersect throughout all areas of the Willamalane District. Their existing value as recreation opportunities lies in the open space characteristics and in some isolated cases the wildlife habitat that they and associated vegetation pro- vide. However, their value as recreation opportunities and urban corridors is a very real potential. A good example of this multi-use is the E.W.E.B. right-of-way in North Springfield. The construction of the bike path al9ng the right-of-way is amen- able to E.W.E.B 1 and has caused no apparent problem with their operations. It has con- siderably improved both recreation and transit opportunities in the area. / 'J \ \ \~~ 159 NATURAL CORRIDORS Natural Corridors Natural corridors are those linear, natural outdoor spaces including rivers, streams, sloughs, drainages, irrigation ditches, the millrace and vegetated corridors. The value of natural corridors as a recreation opportunity li0S not in developing them but in preserving them for future recreational use and for their existing open space val- ues. In addition to contributing to the area's open space resource these natural corridors provide valuable wildlife habi- tat, storm water run-off control, visual buffering and screening. Many times they are visual resources in themselves. A discussion of some of the area's most im- portant natural corridors as they relate to recreation opportunities follows. .------ I I I • Nodes • Urban Corridors • Natural Corridors 160 Rivers, Streams and Sloughs The two major natural corridors in the area are associated with the McKenzie and Willamette Rivers. They are shown with their associated band of riparian vegeta- tion on the accompanying Map 1B, Recrea- tion Opportunities. The value of these corridors as recreation resources has yet to be realized or capitalized upon. Both rivers represent major recreation re- sources not only on a local level but on a state and national level as well. L.C.D.C. Goal 15 was written specifically to assure that the Willamette River and its associated greenway is protected and preserved for the enjoyment of future gen- erations. The McKenzie River is under study for potential inclusion in the fed- eral government'S Wild and Scenic Rivers program. In addition to these two corri- dors there are a number of streams, creeks, sloughs, and smaller rivers in the area. The Mohawk River joins the McKenzie River about a mile downstream from Hayden Bridge. Cedar Creek, Camp Creek and Kizer Slough are also part of the McKenzie system. pudding Creek and Thompson Slough are tributaries to the Willamette system. Millrace and Drainageways The Springfield Millrace is another of the area's important, water-oriented natural corridors. Hand dug nearly 100 years ago, the Millrace originates along the Middle Fork of the Willamette River south of 36th Street and flows in a predominantly west- erly direction until it again joins the Willamette River, this time the main stem adjacent to Willamalane's Island Park. This natural corridor has already at- tracted much attention as a major recre- ation opportunity for the area and the MetrOpolitan Area Bikeway Master Plan has a bicycle route planned to parallel its entire length. In addition to this water course another major man-made waterway in the area is the Q Street drainage. It runs in a westerly direction originating near 28th Street and roughly paralleling 1-105 until its terminus in the canoe ca- nal system at Alton Baker Park in Eugene. The drainage straddles a broad and open right-of-way that with a minimum of effort could easily handle the addition of a bi- cycle and pedestrian path and landscape plantings. 161 Vegetation Buffers The vegetation buffers indicated on the accompanying map do not at this time ex- ist but are a concept that might increase the area's recreation opportunities while resolving potential land use conflicts be- tween abutting lands. Most of the buffers shown are between heavy industrial or agri- cu:tural lands and adjoining residential neighborhoods. Rising concerns about air, water, noise and visual pollution from heavy industry and about the pesticides, herbicides, noise, dust and smells from agricultural production have heightened the public's focus where these uses abut residential areas. The concern is also apparent in lower property values associ- ated with residential lands along these "edges". The potential resolution of the issues and conflicts arising along these edges may be by developing buffers with recreation opportunities, and by structur- ing both ordinances and development plans around this concept. Were a public ease- ment to be created along their length, coupled with substantial plantings of na- tive shrubs and trees, the vegetation buf- fers and natural corridors created could become amenities where once nuisances or eyesores occurred. The vegetation, parti- cularly the trees, as they matured, would visually buffer the neighborhoods from the other land uses and would also provide valuable wildlife habitat and open space 162 within the city. In many areas where these edges are of significant length and location these vegetation buffers could also be developed to accomodate bicycle aPQ pedestrian paths, further strengthen- ing and integrating the total recreation system within the community. Rights of Way An initial discussion of the recreation opportunities provided by rights-of-way as urban corridors has preceeded this sec- tion. Nevertheless it is important to note the recreation opportunities they re- present as natural corridors. Many of these corridors, particularly those rights- of-way for large electrical transmission lines, have recreational potentials and values that have been demonstrated in other parts of the state and nation. Corridor park development along their length has been a highly successful concept executed elsewhere and has shown that their multi- purpose capacity for both recreation and their primary intended use, energy trans- mission, is great. Traditional manasement of these natural corridors when used ex- clusively for electrical transmission is primarily centered on vegetative suppres- sion for maintenance access and fire safety and limitation of public access for liabil- ity reasons. ~len also used as recreation- al corridors, normal park management prac- tices alleviate fire safety and liability concerns. The public benefits from the in- creased recreation opportunities provided by additional plantings, open space, and the construction of additional amenities, i.e. bike paths, play and picnic areas. Public Open Space public open space as it is discussed here means those open spaces including public lands, agricultural lands, forest lands, and scenic areas of recognized value to the public and community as a whole. The word "public" in this case in no way means or construes public ownership. Their values vary with each of their individual charac- teristics or attributes and have been re- cognized on the state level in L.C.D.C. Goal 5, "Open Spaces Scenic and Historic Areas and Natural Resources". The univer- sal value of open space is th~ community's residents association with the natural en- vironment in an urban setting. It addi- tionally provides both a contrast and change in spatial surroundings and activi- ties that most indoor environments do not or cannot provide. PUBLIC OPEN SPACE • Nodes • Urban Corridors • Natural Corridors • Public Open Space ~ Public Lands The existing supply of public lands form the core of the community's open space. The varied types of public lands and the recreation opportunities they provide have been discussed in preceeding sections. Although they do form the core of the area's public open space and are of docu- mented value as recreation opportunities in the community's recreation system, their value and existence do not suppress the need or the value of additional types of pUblic open space discussed in the following section. Agricultural Lands Currently large amounts of agricultural lands exist both within and outside the Urban Growth Boundary established in the 1980 version of the Metro Area General Plan. Ultimately, however, all agricul- tural land use within the urban growth boundary will be replaced by other land uses and as a result a substantial amount of the area's open space will disappear. Areas where agricultural use will contin- ue outside the boundary are shown on the accompanying Recreation Opportunities map. The overall value of agricultural land is recognized in L.C.D.C.'s Goal 3, "Agricultural Lands". Most of the area's lands designated for permanent agricultural use are located on lower river terraces associated with floodway fringe areas and as such are unsuitable for any forms of urban development. Guidelines outlined in L.C.D.C. Goal 3 suggest that "urban growth should be separated from agricultur- al lands by buffer transitional areas of open space." Willamalane believes that this guideline is a sound principle and should be adhered to in the context of lo- cal planning ~d zoning. The vegetation buffers suggested for recreational use by Willarnalane and discussed in the section on "Natural Corridors" would bring the Metro Area General Plan into compliance with L.C.D.C. Goal 2 and at the same time 163 /benefit the community's recreation system. These vegetated buffers adjoining agricul- tural lands are located north of the Gate- way area in the northwestern corner of the District, north of the Hayden Bridge Road residential neighborhoods, north of the residential neighborhoods in the Thurston Road area and south of Jasper Lowell Road and the residential areas th8re. 164 Forest Lands Forest lands in addition to their pri- mary use, provide secondary scenic open space and recreational values. With the exception of certain portions of Dorris Ranch, no significant forest lands exist within the Willamalane District. However, adjoining the current District boundaries and within the urban service boundary there are significant forest lands in the hills south of Main Street in the Thurston area of Springfield. All of these lands are designated for low-density residential land use in the 1980 Metro Plan. The City of Springfield has taken steps to partially protect these forest lands as they are de- veloped for residential use, by adopting a series of ordinances contained in the 1980 Natural Resources Study, directed at pro- tecting, preserving, and enhancing the area's open space, parks and recreation, scenic and fish and wildlife resources. More discussion regarding the scenic val- ues provided by forest lands follows. Scenic Areas The willamalane District and the City of Springfield are virtually surrounded on three sides by areas of scenic resource value. The predominant physical charac- teristics creating these scenic resources are a combination of the surrounding topo- graphy including mountains, hills, buttes and ridges and abundant forest lands. A complete discussion of these physical char- acteristics is contained in the preceding chapter, "physical Environment-". The for- est lands spoken of here refer to both those lands producing trees of recognized economic value and lands producing less commercially valuable species including alder, ash, oak, madrone and maple. To the north, east and south the community is bounded by these scenic areas but local planning documents do not adequately recog- nize this fact. Scenic areas immediately north of the McKenzie River and southeast of the Thurston area are not shown or in- dicated in any fashion in the 1980 Metro Area General Plan. Willamalane believes these scenic areas are of great value to the residents of the community and these scenic areas should be included in future Metro Plan Updates. These same scenic areas· were inventoried as a part of the prepara- tion of the Working Papers. The bulk of information for formulati.ng planning guide- lines for the areas i.s available to both the City of Springfield and Lane County, and the guidelines are needed immediately to assure the scenic resource value of the areas are protected. 165 +/ ( " ., ., • I I , ~ I I ,- I I ,\, , I I • "- ; 1,-.-- ..-• - I • • I • -.---.- I. I ... , J • , •• Q •,,I,UIN "! ..... , , • "," , • • , , • 1.~e·D·-···'''' -~·'·e ... '~". " , , • ~ " " "• '"• "•e "2 ., "w · "~ '" ;; •Cl '" "•0< :5 .. Q ~ Z " , .. e e 0 u '" ·•, "d ":r. l:J "<0< •~ • ... ••~ "0 •~ o~ CO"Ol~~ ,... '"i'i Zz <2 ....1:< o..l\! uww>~ - zC/)< Z"W~ ::I:~ W!:! a::i 0..<~~ 0'"()~ Sources: • For tllsting and planned infor- ..tlon Stt Mtps 9, II, 13, 14. • For potentl,1 ftat~res. Lacoss &Associates. • EXISTING BOAT RAMP • EXISTING BOAT RAMP(reQUiring improvemenlS) • POTENTIAL BOAT RAMP .... __ . .............. URBAN SERVICE BOUNDARY EXISTING BICYCLE ROUTE PLANNED BICYCLE ROUTE POTENTIAL BICYCLE & PEDESTRIAN ROUTE EXISTING PARKS. SCHOOLS, & OTHER PUBLIC OPEN SPACE AGRICULJURAL LAND USE CLASSIFICATION (Metro Area General Plan) TOPOGRAPHiC FEATURES (50' higher than slKroundiog landscape) RIPARIAN CORRIDOR VEGETAllON BUFFER ZONE (f0l'" conflicting land uses) RECREATION OPPORTUNITIES Map 18 As the following introduction states, Goals and Objectives are the heart of the comprehensive plan. This chapter lists and explains the Park and Recreation Goals, Objectives and Policies for the Metropolitan area, the City of Springfield, and the willarnalane District. Goals. Objectives and Policies Introduction Goals and objectives are the heart of the comprehensive plan. GOals and objectives are essential to the preparation and i~ plementation of a recreation plan. Goals provide the District with direction. In this sense, goals are ideals expressed in somewhat abstract terms. They are values to be sought after, not objects that ne- cessarily can be measured or attained; i.e.: improving the quality of life of a comnunity. On the other hand objectives are ends or points to be reached. Objec- tives are capable of being measured or at- tained, i.e., providing a diversity of re- creation opportunities. In general, goals are universal and lasting, while objectives can change as conditions and recreation needs dictate. Goals are statements of de- sirable conditions toward which the Dis- trict should be directed. Objectives are stated purposes of the District for plan- ning and taking action. Policies are the backbone of the compre- hensive plan complimenting and extending that which has been established in the goals and objectives. Policies are gov- erning principles or courses of action. The policies become a broad framework governing District action. Policies take ideas from a conceptual level of abstrac- tion and express them as statements of in- tent or action. Policies should always, however, retain a dimension of flexibility recognizing the rapid changes which will continue to occur on the District level. Annual updating of the comprehensive plan shall include review and adjustment when and where necessary of District policies. Thus this policy oriented comprehensive plan, by being more flexible regarding rapid changes in District recreation needs, becomes far more useful over a longer period of time than does a project or site oriented park and recreation "master plan". Metro Area The following is an account of the goals, objectives, and policies established for the Eugene-Springfield vicinity in the 1980 MetrOpolitan Area General Plan for parks and recreation facilities: Goal Provide a variety of parks and recreation facilities to serve the diverse needs of the community's citizens. Objectives 1. Coordinate regional-metropolitan parks planning and development among local and state agencies. 2. Ensure that regional-metropolitan parks planning provides a balanced variety of park and recreational opportunities. 3. Develop local standards, measures, and implementation techniques to determine the level and types of local park and recreation facilities necessary to serve the needs of the residents of each jur- isdiction. 4. Develop park sites and recreation facil- ities in the manner best suited to serve the diverse interests of local residents and in areas of greatest need. 5. Close the gap between the current supply of park and recreation facilities and the projected demand. 6. Expand opportunities for the development of private recreational facilities. 171 Policies 1. Develop a system of regional- metropolitan recreational activity areas based on a facilities plan for the metropolitan area that includes acquisition, development, and manage- ment programs. The plan and system should include reservoir and hill parks, the Willamette River Greenway, and other river corridors. 2. Prepare local parks and recreation an- alyses and plans, coordinated on a me- tropolitan level, in each jurisdiction. 3. Accelerate the acquisition of park land in projected growth areas by establish- ing guidelines determining where and when developers will be required to ded- icate land for park and recreation fa- cilities, or money in lieu thereof, to serve their developments. 4. Encourage the development of private re- creational facilities. 5. Develop mechanisms and processes by which residents of an area to be served by a neighborhood park, neighborhood center, or play lot can participate in the design, development, and maintenance of the facility. 6. All Metro area parks and recreation pro- grams and districts shall cooperate to the greatest possible extent in the ac- quisition of public and private funds to support their operations. 172 Springfield The Natural Resources Study and the Wil- lamette Greenway Study both compiled~the Springfield Planning Department in 1980 also establish goals, objectives and pol- icies that relate to recreation opportuni- ties within the Willarnalane District. The Natural Resources Study primarily addresses LCDC GoalS "Open Space, Scenic and Histor- ic Areas, and Natural Resources" but the study also has implications regarding LCDC Goal 8 "Recreational Needs". The Willarnette Greenway Study primarily addresses LCDC Goal 15 "Willarnette River Greenway" but the study also has implications regarding GoalS and Goal 8. The following goal objectives and policies were adopted by the City of Springfield and are contained in the Natural Resources Study: Goal To conserve, protect and enhance open space, fish and wildlife habitats and scenic views and sites. Objectives 1. Continue and improve Springfield's co- operative efforts in working with other state and local agencies which are di- rectly responsible for the management and/or provision of open space, park lands and fish and wildlife habitats. 2. Address the effects of urban develop- ment proposals on identified environ- mental assets and constraints. . 3. Improve Springfield's visual image. 4. Facilitate the use of economically de- velopment forms in natural resource areas. Policies OPEN SPACE 1. No building lots under 12,000 square feet in size will be created if their average slope would be 45% or greater. 2. Any development proposal for lots over 1 acre in size having an average slope of 20% or greater shall be strongly en- couraged to follow PUD procedures. 3. Engineering guidelines for development in hillside areas are being prepared as part of the current updating of the city's subdivision ordinance. Once ap- proved, these guidelines will be imple- mented. 4. Springfield's PUD regulations will be promptly revised, updated and adopted to make it easier to use this form of development. PARKS AND RECREATION 5. The city will maintain and improve its cooperation and communication with the Willamalane Park and Recreation Dis- trict. SCENIC 6. Landscaping shall be required in all site plans submitted to the city's Site Plan Review Board. 7. The retention of trees over four inches in diameter shall be strongly encouraged in all site plans submitted to the city's Site Plan Review Board. 8. A revised Springfield Sign Code that acts to maintain and improve scenic values shall be promptly adopted by the City Council. FISH AND WILDIFE 9. Any development proposal located in prime wildlife habitat areas as iden- tified by the City shall be strongly encouraged to follow POD procedures. The following goal, objectives, and pol- icies were adopted by the City of Spring- field and are contained in the Willamette Greenway Study: Goal To protect, conserve, enhance, and main- tain the scenic, historical, agricultur- al, economic and recreational land along the Willamette River and within the City of springfield. Objectives 1. springfield will work with the State Department of Transportation and other governmental agencies and special dis- tricts to protect their Willamette Greenway lands and resources. 2. The intent of the State Greenway find- ings and policies will be upheld by Springfield in its Greenway regulations. Policies 1. Springfield shall adopt the addition to its existing Willamette Greenway bound- ary which is shown on the attached map. (The addition includes all lands as shown in the State Willamette River Greenway boundary west of Island Park to a point where the Willamette River is crossed by the Interstate 5 freeway bridge) . 2. Springfield shall adopt a special over- lay zoning district which will encompass all Greenway lands within the City. All development within this district shall appropriate Conditional Use Permit pro- cedure. 3. Springfield's Conditional Use Permit procedures shall be amended to provide specific guidelines for the City's review of Greenway zoned development proposals. 173 . Willamalane Philosophy The role of the public park and recreation district is directly related to the health, livability, and quality of life in a com- munity. The Willamalane Board of Directors believes that its primary responsibilities are the provision of park and recreation facilities and services of the highest quality and professional caliber, in a cost effective manner which will serve to en- hance the elements of health, livability and quality of life for the District's res- idents. Further, the Board believes the rights and pursuits of the individual, along with the conservation of natural and cultural resources must be represented and protected whenever decisions are made in the general public interest for the invest- ment of resources in park and recreation facilities and services. Such responsibil- ities must be carried out in a manner which creates a positive leisure environment that reinforces personal feelings of self-worth in each individual regardless of age, sex, creed, ethnic origin, or physical capabil- ity. Goal Provide a variety of park and recreation facilities and services that meet the di- verse needs of, and creates a positive lei- sure environment for the residents and vis- itors of the District. 174 Objectives 1. PARK AND RECREATION FACILITIES Willamalane shall provide a variety of parks, recreation facilities and natural areas to meet the diverse needs of all the residents and visitors of its juris- diction at the neighborhood, community and metropolitan levels, in a manner that will enhance the health, livability and quality of life in the community. 2. LEISURE PROGRAMS Willamalane shall provide for its res- idents a broad base of leisure program alternatives designed to meet the inter- ests of its various populations and to enhance the positive feeling of self- worth in the individual, regardless of age, sex, creed, ethnic origin or phys- ical capability. 3. PLANNING willamalane shall initiate a system and maintain a process of comprehensive planning and accountability which will enable the District to make sound de- cisions concerning park, recreation fa- cility, and leisure program development which will satisfy existing and future recreation and leisure needs of the community. 4. COORDINATION Willamalane shall work to establish both formal and informal mechanisms and agreements for coordinating efforts with other appropriate public agencies and private entities in the planning and de- velopment of park and recreation facili- ties and services. Willamalane shall also work to maximize the use of under- utilized resources belonging to these public and private entities rather than have the District duplicate such recre- ation resources at public expense. 5. PUBLIC INFORMATION willamalane shall provide a comprehen- sive system of public information de- signed to both keep the community's res- idents and visitors aware of the Dis- trict's operations and recreation op- portunities and to elicit response and input from its citizens on a routine basis regarding the same. 6. ENVIRONMENTAL ENHANCEMENT Willamalane shall strive for the con- servation, protection and enhancement of open spaces, scenic and historic areas, and natural resources affecting the positive leisure environment and the provision of park and recreation facilities and services for the citi- zens of the District. 7. FISCAL MANAGEMENT Willamalane will strive to provide pub- lic park and recreation facilities and services under a system of fiscal man- agement of the highest professional cal- iber which insures that the investment of public resources will be applied in the most cost effective manner, under contemporary management practices. Policies 1. PARK AND RECREATION FACILITIES • Strive to provide similar or equal levels in the provision of parks and recreation facilities to all areas within the District's boundaries. • Develop a system of neighborhood, community, and metropolitan parks and recreation facilities that will meet the existing and future needs of the District's residents. • Develop wherever possible parks and recreation facilities that have multi-use capabilities and a high degree of adaptability to more inten- sive use or uses as recreation demand and population density increase. • Provide sufficient maintenance and up-keep to maintain high quality existing and future parks and recre- ation facilities. • Assure, as necessary, that both auto- mobile and bicycle parking is provided for at all parks and recreation facil- ities. Automobile parking should in- clude spaces designed to meet the spe- cific needs of handicapped persons. • Evaluate the accessibility of all existing parks and recreation facil- ities for handicapped persons and senior citizens. Design all future parks and recreation facilities ac- cording to appropriate standards that will meet the needs of handi- capped persons and senior citizens. • Assure that all lands acquired or do- nated for park and recreation pur- poses meet or exceed minimum acreage standards. • Land acquisition to satisfy needs for additional parks and recreation fa- cilities should be a high priority for the District. • Park and r~creation facility sites should be acquired in advance of need so that they can be reserved for fu- ture District recreational use before the cost of acquisition becomes pro- hibitive. 2. LEISURE PROGRAMS • Strive to provide similar or equal levels of recreation services and leisure programs to residents of all areas within the District boundary. 175 . • Strive to meet the diverse recreation and leisure needs of the entire popu- lation of the Willamalane Park and Recreation District with appropriate leisure programs. • Assist in providing for the recrea- tion and leisure needs of short term, out-of-the-area visitors. • Assist other public agencies and pri- vate entities in developing leisure programs appropriate for the recre- ation needs of Willamalane residents. • Encourage the development of fitness and other leisure programs within private and public work environments. 3. PLANNING • Provide an on-going process of com- prehensive planning inclUding inven- tory, analysis and evaluation for the formation of subsequent updates and action plans. • Continue to assess and re-evaluate recreation and leisure needs within the District so that resulting imple- mentation efforts are streamlined for meeting those needs. • Continually re-evaluate and update District standards for parks and re- creation facilities as new informa- tion becomes available. • Re-evaluate and adjust District pol- icies as a part of the updating pro- cess of the Comprehensive Plan. • Work with LTD in assuring that mass transit routing is convenient to existing and future park and recre- ation facility locations. • Work with appropriate public agen- cies in assuring that metro bike- ways are convenient to existing and future park and recreation facility locations. 176 • Initiate and maintain a system for identifying available lands for new park and recreation facilities in un- served areas where recreation needs are greatest. • Initiate and maintain a system for identifying needed remodeling or renovation to existing parks and re- creation facilities. • Initiate and maintain a system for identifying public lands owned by public agencies whose land under joint use might contribute to ex- panded recreation opportunities for District residents. • Initiate and maintain a system for identifying lands outside current District boundaries but within the Urban Growth Boundary which could best be used to meet future recre- ation needs. • Proceed with three final phases: 1) economic planning, 2) program de- velopment, and 3) master planning of the four-phase, Dorris Ranch land use planning process. • Continue to hold public planning meetings to review, evaluate, and adapt designs for new park and re- creation facilities with the neigh- borhood or community residents to be served. • Respond to requests for recreational areas and facilities by various or- ganizations and special interest groups. Each request shall be re- viewed on its own particular merit and assistance shall be provided, where appropriate or applicable. 4. COORDINATION • Initiate formal communication lines and planning processes between Wil- lamalane and other appropriate pub- lic agencies (City of springfield, School District #19, Lane County, Springfield Utility Board, Rainbow Water District, Thurston Water Dis- trict, McKenzie Water District) and private entities whose actions af- fect the District and its provision of park and recreation services. • willamalane encourages the develop- ment of recreation areas and facil- ities on school lands and shall work to develop formal agreements with School District #19 regarding co- operative development of under- utilized or undeveloped school dis- trict properties so that costs are not duplicated unnecessarily at pub- lic expense. • Establish agreements and methodolo- gies with the City of Springfield and Lane County for identifying. planning, and acquiring new park lands outside the current District boundary but within the Urban Growth Boundary. • Establish an agreement and methodol- ogy with the City of Springfield for planning and acquiring new park lands in areas within the City and District boundaries currently not served by adequate park and recreation facili- ties. • Coordinate efforts with other appro- priate public agencies regarding State and Federal programs for ex- isting and potential trail systems and wild and scenic waterways. • Take an active role in promoting both the public and private recreation in- dustry within the community. • Encourage the development of re- creational facilities by the private sector particularly tourist facili- ties and large scale facilities re- quiring a high level of supporting services, supplies and maintenance. • Work with Lane County in evaluating land in close proximity to the Dis- trict which are in the floodway fringe or land generally unsuitable for other purposes for possible recreational potential. • Work with the City of Springfield, Lane County and other appropriate public agencies and private entities, to conserve, protect, and enhance open spaces, scenic and historic areas and natural resources includ- ing the Willamette River Greenway as identified in the Willamalane Co~ prehensive Plan when land use changes for these areas are being considered. • Work to have included in future up- dates of Metropolitan Area General Plan lands just north of the McKen- zie River identified in the Willama- lane Comprehensive Plan as having open space, scenic, or natural re- source value for the District's res- idents. 5. PUBLIC INFORMATION • Vigorously encourage through appro- priate informational means public participation in District planning, review, and evaluation processes. • Encourage and seek public input and comments through the news media, pub- lic informational meetings and other appropriate means. • Develop a system for providing ap- propriate public information for the District 177 • Develop a system for providing ap- propriate public information for the District's residents and visitors that will aid in their knowledge and full utilization of the areas recre- ational opportunities. • Respond to individual suggestions made by District residents and visi- tors regarding parks, recreation fa- cilities and leisure programs. Each suggestion shall be reviewed on an individual basis with appropriate actions taken. 6. ENVIRONMENTAL ENHANCEMENT • Work with the City of Springfield, Lane County, and other appropriate public agencies and private entities to conserve, protect and enhance open spaces, scenic and historic areas, and natural resources including the Willamette River Greenway, identified as having value to District residents in the Willamalane Comprehensive Plan. • Review the potential of Dorris Ranch, or portions thereof, for recommenda- tion to the State Historic Preserva- tion Office as an area considered eligible for the National Register of Historic Places. • Consider environmental enhancement with regard to recreation development. Parks and recreation facilities shall be developed to insure that a minimum of damage to the environment occurs, while still providing a high quality recreation experience for the Dis- trict's residents and visitors. • Consider environmental enhancement with regard to recreation develop- ment. Parks and recreation facili- ties shall be developed to insure that a minimum of damage to the en- vironment, while still providing a high quality recreation experience for the District's residents and visitors. 178 • Evaluate the recreation potential for District residents and visitors of lands in close proximity to the District which are located in the floodway fringe or are generally considered unsuitable for other purposes. • Work to incorporate recreational amenities such as trail systems, bike paths, and jogging paths with exist- ing drainageways, open space corri- dors and utility rights-of-way so that these natural resources are re- tained as assets in the community's recreation system "and natural envi- ronment. • Work to have vegetated buffers that also act as recreational and open space corridors implemented in those areas with conflicting land use classifications identified in the Willamalane Comprehensive Plan. • Work to have timber removal opera- tions in identified scenic resource areas utilize selective logging and other appropriate techniques in order to maintain the visual resource value of the area. • Work to encourage public access to the rivers and streams in and adjoin- ing the District. Willamalane shall assist other public agencies in plan- ning and prioritizing the development of access points related to the Dis- trict's recreation opportunities. 7. FISCAL MANAGEMENT • Use appropriate means of fiscal anal- ysis when evaluating alternatives for development or expansion of District operations, services or facilities. • Where District economic resources are to be invested, consider both short term and long term costs. • Make all facts and alternatives available to citizen committees working on fiscal or budget matters. • Vigorously examine funding source al- ternatives for new development and renovation of District parks and re- creation facilities. • Consider new concepts of mixing pub- lic recreation areas or facilities with revenue-generating commercial uses such as food services or other concession activities in order to help finance recreation programming, maintenance, and park and facility acquisition and development. 179 This chapter discusses the options for gaining the additional lands needed for new parks and recreation facilities and upgrading existing resources. It also discusses methods of conserving Open Space and Scenic Areas, and maps an Open Space Overlay Zone and a Scenic Overlay Zone. These Zones work in conjunction with the Metro Area General Plan and offer a method for taking the demonstrated values of open space and scenic areas into consideration when making future land use decisions. Implementation Guidelines Introduction Responsibility Goal 8 - Recreational Needs: Goal 5 - Open Spaces, Scenic and Historic Areas and Natural Resources: Tb conserve open space, scenic and histor- ic areas and natural resources. Other statewide goals that are implicitly addressed, include: 15 - Willamette River Greenway 3 - Agricultural Lands 4 - Forest Lands It is the residents of the Springfield com- munity to whom they are primarily responsi- ble. It is their needs and values which this plan addresses and it is also they who will ultimately see the plan through. Only with the wholehearted and undivided support of residents of the area, will the plan see fruition and its objectives be reached or achieved. A secondary responsi- bility is to the state and its statewide goals as outlined by the Land Conservation and Development conmission. The two spe- cific statewide goals addressed in this plan are as follows: The questions regarding responsibility are two-foldi who is reSponsible for providing for the area's park and recreation needs and for conserving open spaces, scenic and historic areas and natural resources, and to whom are they reSponsible? It is cer- tain the answers to the second question come more easily than to the first. Tb satisfy the recreational needs of the citizens of the State and also those of visitors. Goal Goal Goal The last stage in the recreation comprehen- sive planning process is examining ways to implement and revise the plan as time pro- gresses and changes occur. This in effect implies two levels of action: (1) a prac- tical concern for the present or immediate future that focuses on responsibility, capital budgeting. project design and cit- izen participation. and (2) a visionary concern for the long-range future that fo- cuses on probable changes in recreation demand, supply, and needs regarding the community's parks and recreation facili- ties and the other recreation opportunities contributing to the area's entire recrea- tion system. There are many varied and complex mechan- isms both public and private by which park and recreation and open space goals and ob- jectives can be carried out. There is no single best solution or mechanism that will answer all the community's wants, desires, and needs regarding these goals; instead it will take a creative combination of in- tergovernmental coordination and coopera- tion based on solid citizen participation, to realize their accomplishment. Most sim- ply stated, this combination will include elements of the following mechanisms: Acquisition: Obtaining ownership or rights for particu- lar public uses through gifts, donations, easements, dedications or purchase of title or interest. Regulation: Developing ordinances, both prescriptive or restrictive regarding density, land use and development standards. Taxation: Collecting public monies for the above or creating financial incentives for the non- development of open space and other recre- ation resources or opportunities valued by the public. The answer to the question who is respons- ible is not as simple. The easiest answer might be Willamalane, but the easiest an- swers are not always complete or correct. 183 Obviously the surest and most expensive way to obtain lands for park and recreation purposes is to buy it. Some land may be acquired by Willamalane out of current tax revenues, but substantial new acquisition will require voter approval of serial lev- ies or longer-term capital improvement or general obligation bonds. It is also pos- sible the District might sell portions of land it now owns to gain revenue to buy parcels it feels are more significant or valuable for recreational needs. Facilities Parks and Recreation Certainly, Willamalane as the community's park and recreation district shares the responsibility. But this responsibility is shared with both the City of Springfield, the jurisdiction with whom Willamalane is most closely allied, and with Lane County, Background within whose jurisdiction the City of Springfield and Willamalane Park and Recre- ation District reside. The fact that this Numerous options are available for gaining responsibility is shared is reflected in the additional lands necessary for new the goals, objectives, and policies adopted parks and recreation facilities and for by each of these public bodies, discussed upgrading existing resources. Some of in the previous chapter. This responsibil- these options are listed here, but others ity is 'also shared with others in both the not listed may avail themselves in the fu- public and private sector. Acquisition and ture. It is critical that the District taxation are mechanisms for implementation remain open to new options for realization that Willamalane, Springfield, and Lane of its recreational goals and that its ac- County share, but regulation is largely a tions and policies allow for their incor- mechanism that only Springfield and Lane poration. The use of lands for public park County have. Because of this, it is most and recreation facilities, usually requires apparent that the community's recreational public ownership and acquisition, or legal, needs can only be satisfied and the open long-term use agreements. spaces, scenic and historic areas and natur- al resources conserved, when these responsi- bilities and tasks are shared by all three Fee Acquisition public jurisdictions. Of primary concern to Willamalane are mechanisms that will aid in providing for the community's recrea- tional needs. Within the three basic mech- anisms for achieving objectives, there ex- ist numberous sub-categories and in addi- tion to these, technical help and support programs are available both from state and federal agencies. The following summary in- cludes some of the mechanisms which might be appropriate for realizing goals, objec- tives and policies adopted by Willamalane, Springfield, and Lane County. Leases Another option would be to enter into long- term leases from public or private entities owning lands deemed important to the com- munity's recreation system. This option is best exercised where only a minimum of cap- ital expenditures are expected to be in- vested to upgrade the land for recreational use. Low level or passive park development is feasible on land leased on a shorter term basis, whereas a very long lease would be necessary to develop major recreation facilities such as an aquatics or community center. 184 -Easements Another less expensive alternative than purchase, is the acquisition of easements for public recreational use. This mechan- ism is especially applicable to small par- cels and connecting corridors. It has al- ready been employed within newer subdivi- sions in the Thurston area and elsewhere in the community and could also have applica- bility along the edges of commercial or in- dustrial areas where local ordinances al- ready require landscape plantings and buf- fers. Some examples tried successfully in other jurisdictions have included bicycle and pedestrian paths, vegetated buffers, or visual screens and conservation areas for wildlife habitat or other purposes. Gifts, Donations and Dedications An active park and recreation program may be greatly aided by public spirited citi- zens through gifts of land, dedication of public easements, financial contributions or even the donation of personal labor or construction materials. In other areas clubs, service organizations and businesses have adopted specific parks to maintain, or new projects to aid in construction. The Jack Lively Trust Fund was created by wil- lamalane to accept contributions of land, finances, or other resources for just this purpose. Additionally, formal mechanisms or agreements need to be created for trans- ferring lands donated to the City of Springfield for park and recreation pur- poses, to Willamalane. The City has no agency for parks and recreation but has in the past accepted lands for that purpose. The agreements should include review by willamalane to assure the parcels' recrea- tion potential; and might also include the option to sell the parcel to gain funds to be used for acquiring other, more valuable, park lands. Public Lands A significant amount of land within the area is in possession of various public jurisdictions, agencies, school districts, and utilities -- most significantly School District *19, Lane County, springfield Utility Board and Eugene Water and Electric Board. While not automatically available to Willamalane for District recreation needs, this land is at least preserved from other imminent forms of development, and lies in wait as possible future recreation resources. Willamalane should further pur- sue legal methods through proper governmen- tal channels, for obtaining multiple-use and development agreements, public access, or other suitable alternatives to actual transfer of title or ownership. Zoning Ordinances ZOning ordinances for the area are created and regulated by both the City of Spring- field and Lane County. Existing ordinances for different types of development make little or no effort to gather lands or mon- ies for park and recreation or public open space needs created by these new develop- ments. Exceptions might be seen as set- back controls, landscape requirements for most types of development, and open space created in their respective Planned Unit Development (cluster) development ordi- nances. However, these exceptions contri- bute very little or no useful lands for public recreational purposes. Each new development and its subsequent conversion of land to more intensive use, neverthe- less, swells the need for public lands for parks and recreation facilities and open space. As in other areas both within this state and elsewhere, developers (particu- larly in the residential sector) should justly expect to make their rightful con- tribution, either in lands or monies, to at least partially satisfy those needs created by the development. In addition to lands or monies dedicated for local, neighborhood park and recreation needs in the area of development a proportional con- 185 = tribution in land or money should be con- sidered to meet increased need for commun- ity or metropolitan parks and recreation facilities. Vacant Lands and Open Space Willamalane, Springfield, and Lane County need to further examine the community's re- serve of vacant lands and open space as documented in this plan. The city and Willamalane should vigorously pursue me- thods for obtaining lands within current city and district boundaries to meet im- mediate recreational needs. At the same time, Willamalane should work to guide Lane County's acquisition of recreational lands outside the District boundary but within the urban service boundary where future annexation and growth is likely to occur. Governmental Aid willamalane has a history of success in ob- taining additional funds from both state and federal sources for local park and re- creation purposes. However changes in the financial climate in both Salem and Wash- ington D.C., necessitate additional ef- forts on the District's part to keep abreast of these potential funding sources. Major changes have occurred in the struc- ture of the federal government and the way it funds park and recreation needs. As mentioned earlier, the former Heritage Conservation and Recreation Service has been dismantled. The National Park Service within the Department of Interior will re- place or take up the function of the now defunct HCRS. Two major changes are fore- seen on the federal level for funding lo- cal park and recreation. The new emphasis will be on funding projects that create, or enhance physical resources; the con- struction or renovation of park lands and recreation facilities. Emphasis previously had been placed on human resources, recre- ation programs and social services. The other major change will be that most funds other than UPARR and Land and Water Conser- 186 vation funds, will likely be allocated to local areas in the form of undesignated block grants. The responsibility for pri- oritizing and allocating these funds will be largely determined at the local level, and park and recreation needs will compete with other urban programs such as streets, sewers, economic development, law enforce- ment and housing. To maintain its share of funds, Willamalane and its residents must remain well informed and ready to take action. Future Planning and Updating In addition to the work already accom- plished by the Citizen Advisory Committee, Board of Directors, Willamalane staff and consultants during this phase of the com- prehensive planning process, much work re- mains. The Capital Improvement Plan Com- mittee in conjunction with the Citizen Advisory Committee for the Comprehensive Plan and the Board of Directors will work with aid of the staff in further prioriti- zing the park and recreation needs estab- lished in this phase of the process. Short-term and long-term priorities will be established along with the examination of potential funding sources. The culmination of this effort will be a five year action plan for the District including a capital improvement plan for funding acquisition, design and development. Other planning studies and methodologies outlined in pre- vious chapters will also need to be initi- ated and pursued to keep on top of changing conditions within the community. Annual updates incorporating these changes will be a continual part of the District's compre- hensive planning process. •Open Space Background The Land Conservation and Development Com- mission as was previously discussed, re- quires in Goal 5 that the conservation of open spaces be both considered and realized through local comprehensive plans. In this same vein, willamalane, Springfield, and Lane County have all adopted goals, objec- tives and policies relating to the conser- vation of open spaces. At this time tax incentives also exist for private and pub- lic land owners wishing to leave their land as open space. In accordance with oregon Revised Statutes 308.745 and 308.790, ap- plication form PT-C-I06 (10-71), issued by the State of oregon Department of Revenue and available at the County Assessor's of- fice allows for special or preferential as- sessment of open space lands. Taxes for approved parcels are then lowered, and re- main so as long as the land is left as open space and not developed. The property own- er has the right to later develop the par- cel to its full intended use, but at that time back taxes will be collected, making up the difference incurred over the years. During the Metropolitan Area General Plan updating process, the varied types of lands in the metro area of recognized open space value were inventoried. Resulting lands of open space value, assessed in that process are documented and discussed herein under the chapters titled: "physical Environment", "Cultural Environment", and "Recreation Re- sources". Land with open space value which was documented during the Metro Plan Inven- tory Phase, was subsequently reduced or eliminated during the Working Papers, draft and adopted Metro Area General Plan. Real- izing that in many cases the designated use (shown on the Metro Plan) can occur while still preserving or conserving the open space value of the land, the Willamalane Comprehensive Plan, 1980, has an open space overlay zone. Open Space Overlay Zone In the hope and with the determination that open space lands do have significant value to the public in both providing recreation opportunities and contributing to the area's recreation system, Willamalane has produced an Open Overlay ZOne Map contained at the end of this section. The Open Overlay ZOne is a composite of open spaces inventoried as a part of the Metro Area General Plan process and further refined during will~ alane's Comprehensive Plan inventory. The Open Space Overlay ZOne Map indicates all the open spaces inside and outside the Dis- trict boundaries. It makes no differenti- ation between open space types or the dif- ferent values inherent in each type. The varied sources for the open space inventory are documented on the map and can be fOWld in preceding chapters on Physical and Cul- tural Environment or Recreation Resources in this document. Metro Area General Plan The Open Space Overlay ZOne Map is designed to be used in conjunction with the desig- nated land use classifications shown in the 1980 Metro Area General Plan for further planning efforts in the local area. The overlay in no way supersedes planning de- cisions made as a part of the Metro Plan. The intent is that it can add further de- tail and resolution to the Metro Plan for making future decisions, by allowing cit- izens, planners, developers, and politi- cians in both the city and county to view both existing open spaces and designated land use classifications on the same map. It is hoped that as future development of these particular areas occur, some of the open space value can be preserved while at the same time accomplishing objectives of the Metro Area General Plan. 187 7 Scenic Areas Background L.C.D.C. Goal 5 also requires the conser- vation of scenic areas be considered and pursued by local comprehensive plans. Wil- lamalane, Springfield and Lane County have all adapted goals, objectives and policies relating to the conservation of scenic areas •. However, in the Metro Area General Plan adopted by both the city and the county, many if not most of those lands contributing to Springfield's scenic re- source base were omitted and not shown. These scenic areas in the hills immediately north of the McKenzie River and south of Main Street in the Thurston area were in- ventoried during the update process of the Metro Plan, and therefore information re- garding them is immediately available to both the city and the county. Willamalane believes these lands should have been in- corporated in the most recent Metro Plan and feels it is mandatory that they be in- corporated in future updates to assure con- servation of this valuable resource. Scenic Overlay Zone In the meantime to assure these scenic areas are wisely managed to protect their inherent values, Willamalane has created a composite map, shown at the end of this section, entitled the Scenic OVerlay Zone. The composite was prepared from scenic areas inventoried during the update pro- cess of the Metro Plan and further refine- ment was added as a part of Willamalane's inventory work for its comprehensive plan. The sources for the Scenic OVerlay Zone are documented on the map and contained in preceding chapters in this text. Lands indicated as "scenic areas" are mostly mountains, hills, ridges, and buttes in and surrounding the district, that are characterized by woods or forest vegeta- tion. 188 Metro Area General Plan The Scenic Overlay Zone map is designed to be used in conjunction with the designated land use classifications shown in the 1980 Metro Area General Plan for further plan- ning efforts in the local area. In many cases the scenic areas shown are outside the limits of lands designated and planned for in the Metro Plan so that little or no conflict occurs relative to objectives out- lined in the Plan. The Scenic Overlay Zone can add further definition and resolution to the Metro Plan and aid in future deci- sion making by citizens, planners, devel- opers, and politicians, by displaying scenic areas and designated land use clas- sifications on the same map. The Scenic OVerlay ZOne is not intended to supersede any planning decisions or objectives made in the Metro Area General Plan. It is a tool to be used in future planning so that scenic areas' values can be conserved while still attaining the development objectives outlined in the Metro Plan. a16 Map o~COU CJ)1i' ~ '"is Zz «g ...1< a.J:! uww>~ (J)~ z"w~ J:~ w!fl a:5 a.<~j o~o OPEN SPACE OVERLAY ZONE mmForest Ift'.lli'/~.lI7X.·' Agricullural • .•1. Urban Service B01..ndary ••••• Willamalane Boundary ••••• Springfield Boundary ....... Combined WiNamalane & $pringlield Boundary c=J light Industrial [DSpeC!a1 Light Industrial _Heayy industrial ~Government & Education 1:'··/·~:·ISand & Gravel h:..:r" ~ c (J) z '"Z ~ UJ ~ '"I ~wUJ z a: '"~a.. '"~~ '"~0 ~() ~ SCENIC OVERLAY ZONE ~Forest ~AgriculturalC==:J Light Industrial~SpeCial Light Industrial I Heavy tndustrial.!N.....:. Government & Education.,' '.. ~ Sand & Gravel 1~~ii~:~'\lParks & Open SpaceMajor Retail 1.... :·~:IRural ~ low Densily Residential Medium Density Residential High Density Residential Commercial IZlscoo,c D."'ay Zooo Source: • See Ha:p 13, -Scenic Aren lod Kistorlt Situ". for SOUN:U. The 5tenit Overlay Zone is comprised of the following elelllel'lts: o Prominent vegeltUon. o Old Gl"OWth Forest. a Surhce lIlIters. o Lands In Agricultural Use. D Agricultural Land Use Classification (Metro Area Geller,1 Pl.n). o Topogrlpftic Futures (SO ft. higher IN.n surn;lUndlng hnd- seape). r i 10.+ ~ •, 0 0 •0 • '" 0 , • ~0: • '" • .. '"f-o , 0 • '"< E , 0 i - 2 <~., ~ U 0 ~~ 0 0.~ '" •0 '" 0 ~0 • ~< ~:5 • .. l • > , " 0 z 0 ,, 0 • E • -E " 0 u '" , '" , "d .~ ,~ 0 u , ~ '" 0 < • •~ ~ • • ... u ".;; ~0 • , 0 ~ ~ - Glossary Glossary AQUATICS CENTERS Indoor swimming facilities capable of handling a multitude of programming needs including instructive, theraputic, competitive, and general swimming needs. Facilities may include wading, training, therapy, and diving areas as well as having the capability of functioning as either 25 or 50 meter competitive swimming areas. ARCHERY RANGE Improved facilities for archery competition and practice. May include both target areas as well as field courses. ASSUMPTION A position, projection or conclusion considered to be reasonable. Assump- tions differ from findings in that they are not a known fact. BASEBALL DIAMONDS 90' diamonds and fields of sufficient dimension and development to handle competitive/league play. BASKETBALL HALF COURTS Facilities for praotice or informal play not suitable for league or com- petitive play. BICYCLE MOTOCROSS AREAS Outdoor tracks and auxilliary facilities including sanitary facilities and parking suitable for competition and practice. BOAT RAMPS Hard paved launching facilities for small boats, adjacent to bodies of moving or standing water. parking and sanitary facilities. CAMPING FACILITIES rafts, kayaks and canoes Areas should include Areas suitable for both tent camping and separate areas for the use of mobile homes, trailers, and pickup-campers. CAPITAL IMPROVEMENT BUDGET That part of the total district budget earmarked specifically for land acqui- sition and development of facilities. 195 CHILDRENS' PLAY AREAS Areas including play structures or app~ratus suitable for children ages 7-12. COMMUNITY CENTERS Indoor facilities for the leisure and recreation needs of a large portion of the District's population. Facilities might include a gymnasium, meeting rooms, shops, cooking facilities, classrooms, restrooms, a~d offices. Commun- ity centers currently supplied by School District #19 and programmed by Wi1- 1ama1ane through the Community Schools program are considered substandard in design by Willama1ane standards. The facilities available at public school sites were designed specifically for school uses and are physically limited in their adaptability for quality recreation experiences and recreation needs relative to Willamalane standards. COMMUNITY GARDENS Large plots of arable land (with irrigation facilities) available for a fee to District residents for use as individual vegetable garden plots. Garden- ing methods will de-emphasize use of pesticides and herbicides. COMMUNITY PARK Serves surrounding metropolitan residents (usually a number of neighborhoods) with a variety of specialized recreational facilities and programs such as aquatics, tennis, cultural arts, organized sports and league play. CONSERVE To manage in a manner which avoids wasteful or destructive uses and provides for future availability. CONSERVATION The act of conserving the environment. CULTURAL AREA OR SITE An area with important manmade improvements for specific use(s), a recognized area or site of cultural importance. DEMAND A seeking or state of being sought after, urgent need. DRAINAGEWAY A natural or manmade channel through which water flows. EQUESTRIAN FACILITIES Areas including stables or boarding facilities, riding rings and ridlng trails. 196 EXPOS~RE (1) A condition or an instance of being exposed as in the condition of being exposed to the elements or (2) A position with respect to the points of the compass or to climate or weather conditions. FACILITY (1) Something that promotes the ease of an action, operation or course of con- duct, or (2) Something that is built, installed or established to serve a particular purpose. FINDING Factual statement resulting from investigations, analysis or observation. FISHING ACCESS Lands open to the public adjacent to bodies of moving or standing water where recreational fishing opportunities exist. FITNESS COURSES Courses that combine jogging trails or paths with specific areas equipped with exercise apparatus. FOOTBALL/SOCCER FIELDS Fields of sufficient dimension, development and maintenance to facilitate competitive or league play. GOAL Broad statement of philosophy that describes the hopes of the people of the district or community for the future of the district or community. A goal may never be completely attainable but is used as a point to strive for. HABITAT The place or type of site where a plant or animal naturally or normally lives and grows. HISTORIC AREAS Areas including structures and specific landscape features that have histor- ic resource value to the general public. HORSESHOE FACILITIES Areas at times separated by fences including all permanent facilities neces- sary for the play of horseshoes. '97 IMPROVEMENT To increase the value of land or property by betterment such as landscape development or the erection of buildings or other structures. JOGGING PATHS Path systems usually with soft surfaces, such as bark, suitable for recre- ational running. Jogging paths may be combined with bike paths in which case they will be hard paved. LANDSCAPED To modify or ornament a landscape or parcel of land by desirably altering the plant cover and arrangement of elements. LCDC Land Conserviation and Development Commission, State of Oregon. LCOG Lane Council of Governments, Lane County, Oregon. LEISURE Freedom provided by the cessation of required activities, particularly time free from work or duties. LIGHTS Two different kinds of lighting are included in park areas. Lighting for safety and lighting of facilities for evening play. MODE A particular form or variety of something as in mode of transportation (bicycle, bus, car, train, plane, etc.). MULTI-PURPOSE COURTS Three-wall, outdoor facilities suitable for use in the play of paddleball, handball, raquetball, and the practice of tennis. MULTI-PURPOSE FIELDS Large, flat, turfed areas suitable for the practice or informal play of field games. These fields are generally of insufficient proportions, levels of development or maintenance to be suitable for competitive or league play. MULTI-PURPOSE LAWNS Fenced, well drained, highly maintained lawn areas suitable for croquet, lawn bowling, bocci baIlor other similar lawn games. 198 MULTI-USE A place or building that has the capacity to simultaneously facilitate dif- ferent uses or that is capable of adapting to different uses at different times. NATURAL AREAS Preserved areas incorporating a valuable natural resource such as significant vegetation, wildlife habitat, unique geologic features, etc. NATURAL RESOURCE A material, condition, capacity or source of something supplied by nature. NEIGHBORHOOD A readily identifiable area with people living in close proximity and sharing similar living or environmental conditions. NEIGHBORHOOD CENTERS Indoor facilities including meeting, classroom, or craft spaces in addition to restrooms suited to meet the leisure program needs of a specific neighborhood area. Facilities now supplied L~e SChool District are regarded as substandard for the same reasons cited under Community Centers. NEIGHBORHOOD PARK A park designed for and shared by people of a particular neighborhood. NET NEED The aggregate needs for parks, facilities or programs in a particular neigh- borhood or service area. NRPA National Recreation and Park Association, Washington, D.C. OBJECTIVE An attainable target that the community attempts to reach in striving to meet a goal. An objective may also be considered an intermediate point that will help fulfill the overall goal. OPEN PLAY AREAS Turfed areas of irregular proportions that are suitable for general or infor- mal recreational play. These areas have more varied topography than multi- purpose fields and may be interspersed with landscape plantings such as shrub ceds or occasional trees. 199 --------- ----_.~~_.- -- -------------,. OPEN SPACE Vacant lands or lands used for agricultural or forest purposes that con- serve, enhance or preserve natural or scenic resources, or have some re- creation potential. OPERATING BUDGET That part of the total district budget that is specifically earmarked for administration, maintenance, or program facilitation. PARK .A parcel of land held in reserve in a natural or landscaped state intended for a population's recreation and leisure time use. PICNIC AREAS Facilities for individuals or for groups. Individual areas may only include a table and benches. The addition of shelters allow for all-weather use. Group areas will include numerous tables and benches and may include a large shelter or permanent barbeque facilities. POLICY (1) A definite course or method of action selected among alternatives and in light of given conditions to guide and determine present and future decisions. (2) A high-level overall plan or decision embracing the general goals and ac- ceptable procedures of a particular political body. PRESERVATION (1) To keep safe from injury, harm, or destruction, or (2) An area of re- stricted use for the protection and preservation of certain natural resources (as animals or plants) . PRIORITY Rating, rank, or position in relative precedence (as in importance or super- iority) . PROCESS A system or method by which conclusions are dra~l or decision, are made. PROGRAM A structured plan or system for recreation or leisure activity under- which action may be taken toward answering a recognized need or goal. RECREATION A means of diversion or refreshment of strength of spirit. 200 I I RECREATION CORRIDOR Linear park or open space. REGIONAL PARK Serves the entire regional population and is designed to draw from a large or ~ide area incorporating facilities or programs that cannot be supplied at the smaller cornrnUJ'lity or neighborhood parks. RESTROOMS Permanent developed structures incorporating sanitary facilities. Not in- cluding temporary facilities such as port-a-pots. SCENIC Of or relating to natural or unique scenery as in a view. SCORP Statewide Comprehensive OUtdoor Recreation Plan, State of Oregon. scs Soil Conservation Service, u.S. Department of Agriculture. SENIOR A citizen over 55 years of age. SENIOR CENTERS Indoor facilities specifically designed to meet the leisure and recreation needs of the senior adult population. Facilities will include meeting, class, shop and game rooms as well as auditorium and dining spaces including kitchen facilities and restrooms. SHOOTING FlANGE An area for practice and competitive use of firearms. Area may include both field and target ranges. SOFTBALL OIAK)NDS 60 foot diamonds with fields of sufficient dimension, development and main- tenance to be suitable for programming of both youth competitive hardball and softball as well as adult, league softball. SPEX:IAL PARK A park, open space, or facility incorporating or taking advantage of a unique recreational opportunity, (i.e. recreation corridor (trail or bikeway systems along millrace or drainagewaysl living history park, etc.). Or serving spec- ial j~terest or interest groups (i.e. golf course). 201 202 SPECIALIZED RECREATION A program designed to the specific or specialized needs of its participants. (i.e. physically or emotionally handicapped). STANDARD A value, model, characteristic, quantity or dimension held in common by similar entities. SYSTEM (1) A regularly interacting or interdependent group of items forming a unified whole, or (2) An organized or established procedure. TENNIS COURTS Facilities of standard dimension, and singular use for the instruction and play of tennis. TRAIL A continuous track made by passage or a constructed path usually through a natural area. UNDERDEVELOPED LAND Lands which have not been developed to attain their maximum or highest and best use. UNDEVELOPED LAND Complete tax lots that are vacant or used for forestry or agricultural pur- poses. VISTA A distant view through or along an avenue or opening. VISUAL Attained or maintained by sight. WATERCOURSE A natural or manmade channel through which water flows. WATERSHED A region or area measured from ridgeline to ridgeline bounded peripherally by a water parting and draining ultimately to a particular watercourse or body of water. ZONE A region or area set off as distinct from surrounding or adjoining parts. Bibliography Bibliography 1 2 3 4 5 6 7 8 9 10 11 12 (8) (7) (5) (28) (1) (11 ) A PLAN FOR DOWNTOWN, Springfield Planning Department, City of Springfield, Oregon, 1976. ATLAS OF OREGON, William Loy, University of Oregon, 1976. DORRIS RANCH - LAND USE PLAN, willamalane Park and Recreation District, Springfield, Oregon, 1980. EARLY DAYS ON THE uPPER WILLAMETTE , Jensen M. Verly, The Mail Printers, 1970. ECONOMIC PROFILE - SPRINGFIELD,OREGON, Springfield Area Chamber of Cormnerce, 1981. Eugene Register Guard, November 11, 1971. GENERAL SOCIAL AND ECONOMIC CHARACTERISTICS-OREGON, U.S. Dept. of Commerce, Bureau of Census, Washington D.C. , 1972. GEOMORPHOLOGY AND SOILS, WILLAMETTE VALLEY OREGON, Balestar and Parsons, Oregon Agricultural Experiment Station Report 265, 1968. HAYDEN ISLAND COMPREHENSIVE PLAN, Steffonoff and Herning, 1975. HISTORIC BUILDINGS OF SPRINGFIELD: 1980, Ellen Kotz - Historic Resource Coordinator, City of Springfield, Oregon, 1980. ILLSUTRATED HISTORY OF LANE COUNTY, OREGON, A.G. Walling Publishing, 1884. INDEX TO DONATION LAND CLAIMS, Oregon Division of Archives, 1953-54. 205 13 14 15 16 17 18 19 20 21 22 23 24 206 ( 29) LANE COUNTY PARKS MASTER PLAN, Lane County Parks and Open Space Division, 1980. LOCAL CLIMATCLOGICAL DATA, National Oceanic and Atmospheric Administration, Data and Information Service, National Climate Center, Asheville, North Carolina ,1979. METRO PLAN REVIEW, Springfield Area Chamber of Commerce, 1980. METRO PLAN UPDATE - WORKING PAPERS, Lane Council of Governments, 1978. METROPOLITAN AREA BIKEWAY MASTER PLAN - EUGENE SPRINGFIELD, OREGON, Lane Council of Goverments, 1975. METROPOLITAN AREA GENERAL PLAN, Eugene-Springfield,Lane Council of Governments, 1980. NATURAL RESOURCES STUDY, Springfield Planning Department, City of Springfield, Oregon, 1980. NISQUALLY NATIONAL WILDLIFE REFUGE ENVIRONMENTAL IMPACT ASSESSMENT, U.S. Fish and Wildlife Service, 1978. Oil and Gas Investigation Map OM-110; "Geology of West Central Border Area of the Willamette Valley, Oregon" 1951. OPEN SPACE FOR BOCA RATON, An Open Space and Recreational Master Plan, Winston and Blandford, University of Pennsylvania, 1975. OREGON COMPREHENSIVE OUTDOOR RECREATION PLAN, Oregon State Parks and Recreation Branch, Dept. of Transportation, 1978. OREGON OUTDOOR RECREATION DEMAND BULLETIN - 1975- TECHNICAL 25 26 27 28 29 30 31 32 33 DOCU~IT I , Statewide Comprehensive Outdoor Recreation Plan, Parks and Recreation Branch, Dept. of Transportation,1978. OREGON OUTOOOR RECREATION SUPPLY BULLETIN - 1976- TECHNICAL DOCUMENT II, Statewide Comprehensive OUtdoor Recreation Plan, Parks and Recreation Branch, Dept. of Transportation, 1977. OREGON OUTDOOR RECREATION NEEDS BULLETIN - 1977 - TECHNICAL DOCUMENT III, Statewide Comprehensive OUtdoor Recreation Plan, Parks and Recreation Branch, Dept. of Transportation, 1978. PROCEEDINGS - 1980 NATIONAL OUTDOOR RECREATION TRENDS SYMPOSIUM, Vols. I & II , U.S. Dept. of Agriculture, 1980. RECREATION PLANNING AND DESIGN, seymour M. Gold, McGraw-Hill Book Company, 1980. SUPPLEMENTAL MATERIALS TO THE CENTRAL LANE PLAN FOR REGIONAL PARKS, Kim and Loeffler, Bureau of Governmental Research and Service, University of Oregon, 1970. TRANSPORTATION IMPROVEMENT PROGRAM - EUGENE SPRINGFIELD AREA, FY 1979-80 to 1981-82, Eugene Springfield Transportation Study, Metropolitan Area Transportation Committee, 1979. TRANSPORTATION IMPROVEMENT PROGRAM - EUGENE SPRINGFIELD AREA FY 1980-81 TO FY 1984-85 , Eugene Springfield Transportation Study, Metropolitan Area Transportation Committee, 1980. TRANSPORTATION 2000 PLAN, Eugene Springfield Transportation Study, Lane Council of Governments, 1978. USGS WATER SUPPLY PAPER 890, "Ground Water in Eugene-Springfield Area, Southern Willarnette Valley, Oregon, 1973. 207 34 35 36 37 38 39 (3) (2) USGS Water Supply Paper 2018, Plate I. WILLAMETTE GREENWAY STUDY, Springfield Planning Department, City of Springfield, Oregon, 1980. WILLAMETTE LANDINGS - GHOSTOWNS OF THE RIVER, Howard M. Corning, Binfords and Mort, 1947 WILLAMETTE VALLEY, OREGON, Robert Clark, 3 vols, The S.J. Clark Publishing Co. Chicago, 1927. YOUR COMMUNITY AND RECREATION PLANNING I A Guide for Local Improvernnt in Comprehensive Recreation Planning, Randy Conrad, University of Oreqon, 1977. 1970 CENSUS - DATA SKETCH OF LANE COUNTY, Lane Council of Governments 1972. Appendix Appendix A • Arterial Streets Classifications Introduction The following classification system is co~ mor.ly employed by eraffic engineers, con- sultants and governmental jurisdictions. The system classifies individual streets in a heirarchical arrangement according to their intended use and physical design. Street classifications are important to park and recreation planning when the fu- ture location of parks and recreation fa- cilities are being considered and when alternatives for bicycle and pedestrian routes utilizing this infrastructure of urban corridors provided by existing streets are being studied. (See the ac- companying definitions of Arterial Street Classifications). Traffic Streets REGIONAL TRAFFICWAY - A Regional Traffic- way is intended to provide for inter- regional and inter-district movement. A Regional Trafficway is intended to ser- vice automobile trips which are approxi- mately five miles or more in length, and have only one trip end in a given Trans- portation District or bypass the district. MAJOR CITY TRAFFIC STREET - A Major City Traffic Street is intended to serve as the principal route for the movement of traf- fic which has one trip end within a Trans- portation District, or traffic which has both trip ends within a Transportation District. A Major City Traffic Street, having less traffic capacity than a Re- gional Trafficway, should be used for movement to and from the Regional Traf- ficways, and for movement to and from ma- jor activity centers within each Transpor- tation Di strict. NEIGHBORHOOD COLLECTOR STREET - A Neigh- borhood Collector Street is intended to serve as a distributor of traffic from a Major City Traffic Street to the neighbor- hood and to serve trips which both start and end within a neighborhood. LOCAL SERVICE TRAFFIC STREET - A Local Service Traffic Street is intended to provide traffic circulation and access to neighborhood land uses. Transit Streets REGIONAL TRANSITWAY - A Regional Transit- way is intended to provide for inter- regional and inter-district transit trip movement. A Regional Transitway is in- tended to serve public transit trips which bypass a given Transportation District or have only one trip end in the district. MAJOR CITY TRANSIT STREET - A Major City Transit Street is intended to provide concentrated transit services to connect and reinforce major activity centers and residential areas. A Major City Transit Street is intended to provide transit ser- vice for those trips which have one trip end within a Transportation District, or which have both ends within a Transporta- tion District. MINOR TRANSIT STREET - A ~nor Transit Street is intended to provide for local and neighborhood transi t service. LOCAL SERVICE TRANSIT STREET - A Local service Transit Street should be limited to neighborhood transit service and other special transit services using smaller than standard size vehicles, except in cases where they may be used as route end loops for regularly scheduled transit routes. 211 Appendix B • Streets and Highways Service Levels Introduction street congestion or performance relative to classification and intended use is of- ten expressed in terms of service levels on a scale of A through F. An "A" level of service is the best possible and an "F" level of service is the worst. Level of service "D" or better is generally con- sidered a reasonable traffic flow. In lar- ger urban areas even Level "E" is some- times tolerated during peak rush hour con- ditions. (See the accompanyig definitions of Streets and Highways Service Levels). Service Levels LEVEL OF SERVICE A describes a condition of free flow, with 'low volumes and high speeds, with speeds controlled by driver desires, speed limits, and physical road- way conditions. LEVEL OF SERVICE B represents a stable flow, with operating speeds beginning to be restricted somewhat by traffic condi- tions. Drivers still have reasonable freedom to select their speed and lane of operation. LEVEL OF SERVICE C is still stable flow, but speeds and maneuverability are no;; closely controlled by the higher volumes. Most of the drivers are restricted in their freedom to select their own speed, change lanes, or pass. 212 LEVEL OF SERVICE D approaches unstable flow, with tolerable operating speeds being maintained though considerably af- fected by changes in operating conditions. Fluctuations in volume and temporary re- strictions to flow may cause substantial drops in operating speed. Drivers have little freedom to maneuver, and comfort and convenience are low, but conditions can be tolerated for short periods of time. LEVEL OF SERVICE E represents congested conditions with even lower operating speeds than in level D, and with volumes at or near the capacity of the highway. Flow is unstable, and there may be stop- pages of momentary duration. Most vehi- cles have to wait one light cycle at in- tersections. LEVEL OF SERVICE F describes forced flow, or a jammed operation at low speeds, where volumes are at or above capacity. These conditions usually result from queues of vehicles backing up from a restriction downstream. Vehicles have to wait for one or more light cycles. Level of Service "D" or better is general- ly considered a reasonable traffic flow. In larger urban areas even Level "E" is sometimes prevalent and tolerated during peak rush hour conditions. Appendix C • NRPA Park Classifications Neighborhood "Parks The neighborhood parks should, if possible, adjoin the public elementary schools, which usually serve about a square mile of urban area and a total population ranging from 2,000 to 10,000. It is desirable to locate the areas for active recreation such as ball diamonds and play areas to- ward the interior of the site so the peri- meter can be landscaped to buffer sound, provide a greater measure of safety, and prevent glare from night lighting. Oper- ation agencies should give much more con- sideration to the inclusion of night light- ing for outdoor facilities because it greatly extends use and tends to reduce vandalism. Recreation facilities for adults should be provided in the park portion of the site, in accordance with the desires of the peo- ple. Such facilities as sitting areas, shuffleboard, and horseshoe courts should be located in the shade. Tables for games such as chess, checkers, and cards, and perhaps some picnic tables are desirable. The site and the school building should be designed to attract the people of the neighborhood and make it a center for edu- cation, recreation, and for cultural activ- ities. The recommended standard for neigh- borhood parks is 2.5 acres per 1000 with a minimum size of 5 acres. District Parks The district parks supplement the neighbor- hood parks in providing the near-at-hand recreation facilities needed by the urban population. These larger sites should, if possible, adjoin the public junior and sen- ior high schools. They also encompass the activities formerly included in the "play- field." While the neighborhood sites should be designed to attract and serve the entire populations, there are certain re- creation facilities needed which require more space than the neighborhood sites should accomodate. Thus, the need for the district park. other facilities may in- clude a tennis complex, swimming pool, multi-purpose courts, community center, and adequate off-street parking. Parks of this type are best located on or near thorough- fares, easily accessible and distributed so they are within about one to three miles of each home. The increased mobility of teenagers who heavily utilize the district parks tends to widen the radius of the ser- vice area. The recommended standard for district parks is 2.5 acres per 1000, with a minimum size of 20 acres. Metropolitan Parks Such parks are normally acquired to provide the urban dweller with an opportunity to get away from the noise and congestion of the city without having to travel a great distance. A central location is desirable but not always possible and the large urban park is often located near or outside the city limits. A minimum of 100 acres is required with 250 to 1,000 acres being more desirable. This park may feature wooded areas, varying to- pograhy and water features, picnic areas, boating and swimming, a nature center, na- ture, hiking and riding trails, day camps, and some sports facilities on a less formal basis than the district park. The large urban park usually serves those within a 30-minute drive, which may be 50,000 to 100,000 people. The recommended standard for large urban parks is 5 acres per 1000 and a minimum size of 100 acres. 213 Regional Parks These parks serve the people of a large re- gion - usually those within an hour's tra- vel time. The size and location will vary but at least 250 acres is recommended and may go up to several thousand acres. The responsibility for providing these extra- urban parks generally falls upon the county or a regional authority. Even within the jurisdiction responsible for these parks there may be variances in the type of de- velopment included in a regional park. Some are left primarily in their "natural state" while others will have both natural areas and extensjve development. They should not, under any circumstances, take the place of neighborhood or district parks. As the metropolitan area expands there is often pressure to put facilities in the regional park that are not in keep- ing with the philosophy or purpose of the park. This is actually an example of one type of park development encroaching upon another. It is easy to succumb to this pressure because the parkland is there when urban sprawl arrives. If proper lo- cation and development of neighborhood and district parks is achieved, such pres- sure need not exist. Some of the facilities normally found in the regional park are campgrounds,' picnic areas, nature centers, trail systems, wa- ter areas, a golf course, a miniature train, botanical gardens, and in some cases sports fields. The recommended standard for regional parks is 20 acres per 1000, with a minimum size of 250 acres. 214 Appendix D • SCORP Park Classifications Neighborhood Parks PURPOSE To provide easily accessible recreation areas which serve neighborhood citizens and provide high density active or pas- sive use. MANAGEMENT RESPONSIBILITY Neighborhood parks will generally be ad- ministered by a community agency, but the county, quasi-public and private sectors may also administer these sites. Manage- ment decisions should give priority to pub- lic use but consideration should also be to the quality of the park environment. ACCESS AND SERVICE AREA The park should be located in a community within a 15 minute walk, a 10 minute bi- cycle ride, a 5 minute drive or by a tran- sit system. The park size will normally be less than 15 acres. FACILITIES " SPECIAL CONSIDERATIONS • Park areas such as tot lots, landscaped areas, plazas, squares, etc. will be classified as neighborhood parks. • Neighborhood parks normally support a large number of organized activities. • In small rural communities, parks which serve the entire population but don't otherwise meet the criteria for a com- munity park, will be classified as neighborhood parks. DEVELOPMENT CHARACTER • No more than 80\ of the park should be developed. The remaining 20% should retain a basic natural quality. • Undeveloped areas and landscape barriers can be used to separate passive and ac- tive areas. • It may be preferable to have separate parking lots for active and passive areas. • Ease of maintenance and public use should be prime considerations in devel- opment plans. playground equipment picnic areas Sports field Small game courts Multipurpose courts Swimming facilities Community Parks Passive areas Open spaces PURPOSE * This listing provides a sample of facili- ties that could be found in a neighbor- hood park. None of these facilities are required nor are other appropriate facil- ities prohibited. To provide a variety of moderate density use recreation and/or cultural opportuni- ties; centrally located for citizens of the community and immediate outlying areas. 215 MANAGEMENT RESPONSIBILITY • Community parks are usually the responsi- bility of city government but in some in- stances county, quasi-public or privately • administered areas may qualify as a commun- ity park. Public need is the primary fac- tor in management of the park, but the park environment should reflect the need for di- verse opportunities. Passive and active areas should be ade- quately separated and parking areas should be located convenient to the two areas. Public use is the major developmental - consideration. District Parks ACCESS AND SERVICE AREA Located within the city limits, the park should be accessible by a transit system, if available, and within a 30 minute walk, a 20 minute bicycle ride or a 10 minute drive. The park will normally be between 15 and 100 acres in size. PURPOSE To provide high density recreation oppor- tunities in a relatively natural setting. MANAGEMENT RESPONSIBILITY FACILITIES * SPECIAL CONSIDERATIONS All facilities found in a neighborhood park could also be located in a community park. In addition it might include: * This listing provides a sample of facili- ties that could be found in a community park. None of these facilities are re- quired nor are other appropriate facili- ties prohibited. These parks are usually outside the city limits and serve the equivalent of a county population. The park should be about an hour bike ride or a 30 minute drive from a populous area. Access should also be available by foot, bridle or water trails when possible. A district park is usually between 15 and 200 acres in size. District parks would normally be the re- sponsibility of county or state government but could be administered by federal, quasi-public, private or a large urban area. The park environment, as a major attraction, should receive consideration in management plans, but the park should be managed for public use. ACCESS AND SERVICE AREA Planetorium Art museum Historical museum Sports complexes Stables Undeveloped areas Community center Arboretums Zoos Natural center Camping areas Trails * This listing provides a sample of facili- ties that could be found in a district park. None of these facilities are re- quired nor are other appropriate facili- ties prohibited. • • • • A community park located in a large ur- ban area may not serve the entire city, but perhaps a section within the urban region. Organized activities will usually be a large part of the park's useage. Community parks with unique resources may qualify for a natural or historical sub-unit classification. The undeveloped land can be used for trails, nature study or be reserved for future use. FACILITIES * Picnicking areas Camping sites Sports fields Playgrounds Multipurpose courts Swimming facilities Trails Undeveloped areas 216 SPECIAL CONSIDERATIONS '" This listing provides a sample of facili- ties that could be found in a regional park. None of these facilities are re- quired nor are other appropriate facili- ties prohibited. • Regional parks in low density areas may be further from popUlation areas than those near urban centers. • A regional park is larger, serves a greater POPUlation, and is more natural in character than a district park. • The regional park is developed to pro- vide recreation while the resource parks are for the protection of a particular resource. • Regional parks may contain natural or historical sub-units. SPECIAL CONSIDERATIONS • District parks may be further from popu- lous areas when population density is low. • Organized activities are not as common in district parks. • District parks may have sections desig- nated as natural or historical sub- Wlits. DEVELOPMENT CHARACTER • Low and high density use areas should be separated. • Undeveloped lands should be kept as a Wlitl away from other areas. • About 60' of the park can be developed although the natural character should be maintained. Regional Parks PURPOSE FACILITIES '" Picnic areas Campgrounds Trails Nature study areas playfields Amphitheater Group camps Historic sites Water activity areas To provide low density outdoor recreation opportunities in a natural setting. MANAGEMENT RESPONSIBILITY A regional park would normally be admin- istered by state or federal agencies al- though counties or large urban areas may also manage these areas. The various facilities and activities in a regional park should be compatible with the park environment. The park resource should be given priority in management plans since public use depends on the resources. ACCESS AND SERVICE AREA A regional park should serve several dif- ferent population centers within a reason- able one-day visitation distance. The park should also be accessible by foot, bi- cycle and transit systems, if possible. Park size would normally be above 100 acres. DEVELOPMENT CHARACTER • A regional park should have no more than 40\ of its land base developed. • Access to the park should be controlled so that visitors first enter into the activity area of the park. • Undeveloped land should be in a unit away from the activity area. • A nature center could be located on the edge of the undeveloped area so that visitors may leave the center and go into a natural setting. • Conflicting uses should be separated but all uses should be somewhat compatible within a given park. 217 Appendix E • NRPA Park Standards NRPA STANDARDS FOR SPECIAL FACILITIES FKility (outdoor) SbndAnirt000 peopI~ Commont BAsebAll diamonds 1 per 6000 R~gulation 90 ft SoftbAll diamonds (andlor youth diAmonds) 1 per 3000 Tennis courts 1 per 2000 (Best in ban~ry of~) Basketball couns 1 per 500 Swimming pools-25m 1 per 10,000 BAS~ on 1S sq It of Swimming pools-5Om 1 per 20,000 waterfor ~A. 3% of pop. Skating rinks (anifidA!) 1 per 30,000 Neighborhood centers 1 per 10,000 Community centers 1 per 25,000 Outdoor theaters (noncommercial) 1 per 20,000 Shooting rAnges 1per 50,000 Complete compl~. incl. high'power, smAII·bore, trAp And sk~t, fi~ld Archery, ~tc. Coif courses (18 hole) 1 per 25,000 NRPA PARK AND RECREATION STANDARDS Acre>! Siz~ hJpulAlion Sen-Ice ClusifkAtion tooopeople rAnJe --t AI'U Playlots • 2500 sq ft 500-2500 Subn~ighborhood to 1 acre V~st pock~tparks • 2500 sq It 500-2500 Subn~ighborhood to 1 Acr~ . Neighborhood pArks 2.5 Min. 5 acr~s 2000-10,000 '1._1IJ mile up to 20 acrM District PArks 2.5 20-100 Acres 10,000-50,000 111_3 miles LArge urbAn PArks 5.0 100+ Acres One for ea. SO,OOO Within 'I. hr driving time Regional parks 20.0 250+ .cres Serves entire populAtion Within t hr in smaller communities; driving tlm~ should be distributed throughoutlarg~r metro areas. Specialarus and • Includes parkways, beaches, plans, historicAl sites, flood plAins, Facilities downtown malls, and small parks,tr~ lawns, etc. No SIAndird is ApplicAble. • Not Appllea ble 218 I =NRPA SPACE STANDARDS FOR NEIGHBORHOOD PARKS Aru in Krt'I fKility or unit Pan. -'join"", school SepM..~pArir. PLay "p~r;ltus are.. preschool .25 .2S PLay ;l!>P'filitUS iIIrea-older children .25 .25 '.Ive- Luoi- •~ by CRS JOI!.7'S 10 301.1'0. Wy _ .... __ io doo plOpot1)' ;, by 0 f_ -.pit ---. 0 C.-1nC1 P"f'CIo- 0 0dIf, f. __ (~) , Tho .-,.-..1 <:Mnnrnwa (.., ..........,.. > ~, ... -w: 00000 ..... {.J e-... Of onisMco .-.I '" __ 00000 ..... ()JProtoel_ .......... "' ....- IIIppIr; 00000 ..... {eJ~~ vi ........tbIocb, _ 0< lid.oI .-..Ms; 00000 ..... (4) e-w -......,.01 _ ... _ • ~ Of p""10 PI -.. W'iUdl ..... oW P"'I-.............. tho~ vi "1m, Of .........~: 00000 ..... 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