Franklin Corridor Partnership:

Complete Neighborhoods,
Complete Streets

Franklin Boulevard is a vital and central link between downtown

Springfield and downtown Eugene that also serves as a gateway to both
communities. The Franklin Corridor has many natural and built assets,
including access to the Willamette River, Interstate 5, the University of
Oregon, a world class riverfront park and bicycle path system, and
numerous institutions, employers, and retail businesses. Franklin
Boulevard is already served by Lane Transit District’s (LTD) flagship EmX
bus rapid transit (BRT) line that has been recognized as one of the most
innovative BRT systems in the nation. The area is highly visible to local
residents, visitors to the University of Oregon, as well as to all who travel
Interstate 5.

Yet, the land within the Franklin Corridor is vastly underutilized and far
from realizing its full potential. In both Eugene and Springfield, Franklin
Boulevard is dominated by auto-oriented land uses and has a street design
that favors cars over other modes of travel. The western portion of the
Franklin Corridor has many rental housing units but few are affordable to
very-low and low-income families while the housing stock east of
Interstate 5 is affordable but in very poor condition.

The Cities of Eugene and Springfield have both engaged their communities
to re-envision the land uses along Franklin Boulevard as mixed-use
neighborhoods with vibrant, transit-oriented development. A crucial next
step is to transform Franklin Boulevard from an auto-oriented arterial into
a multiway boulevard that serves all modes of travel – pedestrians, bikes,
buses, and motor vehicles. This change will have a catalytic effect on
redevelopment of properties along the street. The multiway boulevard
design supports the vision for mixed-use development by providing a
pedestrian-friendly streetscape that is buffered from through traffic. The
TIGER II Planning Grant will enable Eugene and Springfield to move
forward on the NEPA documentation and preliminary design of the
Franklin multiway boulevard project.

Another critical element of the vision for the Franklin Corridor is the
development of a mix of housing types accessible to persons with a range
of incomes. Due to the Franklin Corridor’s desirable location, natural
amenities, access to employers and educational institutions, and plans for
desirable mixed-use neighborhoods, it is likely that housing will be out of
reach for low-income persons unless proactive measures are taken to
preserve and build affordable housing. Building on the City of Eugene’s
extensive experience with landbanking for affordable housing, the Cities

Franklin Corridor Partnership Page 1 of 16

will utilize the Community Challenge Planning Grant for the acquisition of at least two sites for future
affordable housing development.

Eugene and Springfield make up the largest metropolitan area along Interstate 5 between Portland and
Sacramento, and our two cities have a long history of working together on regional land use, transportation,
public service, and affordable housing efforts. Eugene and Springfield are a HUD HOME Consortium, jointly
operate a regional wastewater system, participate in the Central Lane Metropolitan Policy Organization, and
are in the process of merging our Fire Departments.

The Cities of Eugene and Springfield and our partners, LTD and the Oregon Department of Transportation
(ODOT), also have a history of success to build upon and are ready to move from planning to implementation
in the Franklin Corridor. Relevant successes include Eugene’s recognition as a Gold Community for Bicycling by
the League of American Bicyclists, Springfield’s Home Ownership Program recognition as a Best Practice by
HUD, LTD’s Sustainable Transportation Honorable Mention by the Institute for Transportation and
Development Policy for the first leg of the BRT system, recognition of Eugene’s Landbanking Program for
Affordable Housing through Harvard University’s Innovations in American Government Program, Eugene’s
recognition as the greenest city in the country by National Geographic’s Green Guide, and LTD’s partnership
with Springfield to extend BRT into Springfield’s Gateway district, which will open in January 2011.

The Franklin Corridor Partnership builds upon our existing partnerships and successes to combine land use,
transportation, and affordable housing efforts across jurisdictional boundaries. We look forward to working on
this challenge and taking our partnership to a new level.

Rating Factor 1: Purpose & Outcomes

Existing Conditions

Franklin Boulevard: Franklin Boulevard anchors Walnut Station and Glenwood and extends from just west of
the University of Oregon in Eugene to the Springfield Bridges just east of the intersection with McVay Highway
in the Glenwood area of Springfield (see Map 1). Franklin Boulevard is one of only four east-west arterials in
the region interconnecting Eugene and Springfield. This five-lane roadway serves a range of transportation
needs: freight movement; commuters; and those patronizing businesses and institutions along the corridor. As
a BRT corridor, buses now operate in a combination of dedicated lanes and mixed traffic. To achieve the
redevelopment vision for Walnut Station and Glenwood, Franklin Boulevard must become more than just a
conduit for moving traffic.

The public and private sectors perceive the current condition and appearance of the Franklin Corridor as an
impediment to the area’s economic renewal. The corridor’s potential to serve as a visible gateway to Walnut
Station, the University of Oregon, downtown Eugene, Glenwood, downtown Springfield, and the metropolitan
area cannot be realized in its current configuration. Frequent access points, unappealing signage, minimal
landscaping, inefficient land development, and unorganized parking defines Franklin Boulevard’s visual
environment. The Willamette River, a significant environmental asset, is largely ignored and disconnected
from the adjacent corridor and neighborhoods. As currently configured, Franklin Boulevard is not a
pedestrian-friendly street to cross, nor does it safely or comfortably accommodate modes of travel other than
motor vehicles. While the street itself provides access to many businesses, the existing street edges do not
enhance active retail or other pedestrian-friendly uses because there are few sidewalks in some areas, and
where they do exist, the sidewalks are often narrow, located on private property or easements, and have no
separation between the sidewalk and the street. Franklin Boulevard also lacks adequate bicycle facilities.

Franklin Corridor Partnership Page 2 of 16

Franklin Boulevard is and will continue to be a key regional arterial and must accommodate 30,000 to 35,000
cars and trucks each day while offering sufficient mobility and accessibility to support growth in daily traffic, as
well as a substantial increase in bicycle and pedestrian trips. Therefore, the challenges related to access
management, parking, connectivity, safety, and operational issues posed by the existing street design must be
addressed to promote multimodal use and support the intensity of high density, mixed-use, transit-oriented
development envisioned by Eugene and Springfield. Limited transportation dollars, combined with the high
cost of facility improvements, make these needed changes a challenge to deliver.

Housing and Demographics: Average wages in Eugene-Springfield have fallen to approximately 88% of the
statewide average and just 79% of the national average. The region also has higher unemployment rates than
the State as a whole. The recent economic downturn has increased the need of residents in the Eugene-
Springfield area for basic necessities, including affordable housing and transportation. The Franklin Corridor
contains neighborhoods where these socioeconomic indicators illustrate an even greater need for economic
improvement. For instance, in Glenwood, a portion of which includes the Franklin Riverfront, median
household incomes are just over $23,000 compared to $35,850 in Eugene and $33,031 in Springfield, and
approximately 44% of Glenwood residents rely solely on public assistance and social security. About 60% of
the households in the Census Tract containing Walnut Station fall within low- and moderate-income
categories.

The housing stock along the Franklin Corridor is older and in greater need for rehabilitation, weatherization,
and major system upgrades than the Eugene-Springfield region as a whole. In the cities of Eugene and
Springfield, two-thirds of the housing stock was built before 1980 while over three-quarters of the housing
stock in the Franklin Corridor was built prior to 1980. Additionally, nearly 60% of Glenwood’s dwelling units
are mobile homes or recreational vehicles that are in serious disrepair and pre-date HUD standards. Further,
there is no subsidized permanent affordable housing in the Franklin Corridor.

In planning for the future of the Franklin Corridor, Eugene and Springfield need to provide opportunities for a
full range of choices in housing type, density, size, and cost. Walnut Station and Glenwood are well positioned
to provide such variety, given the existence of well-established low-density residential neighborhoods within
these districts and their potential for higher-density multi-family and mixed-used development. The affordable
housing property acquisition funded through this grant will enable Eugene and Springfield to affirmatively
further fair housing for households of all ages, incomes, races, and ethnicities in the Franklin Corridor and
could provide options for residents at risk for displacement to relocate within the area, as well.

Project Alignment with Six Livability Principles

Provide More Transportation Choices: A principal desired outcome of a multiway boulevard street design is to
provide more transportation choices. Franklin Boulevard is the backbone of the transportation system in
Walnut Station and Glenwood, and greatly influences the area’s character and development. The key impetus
for realizing the vision for these neighborhoods is transforming the nature of the roadway.

Implementing the multiway boulevard design will result in a Franklin Boulevard that functions not simply as a
transportation corridor, but rather as a complete street supporting pedestrians, cyclists, and transit users. The
multiway boulevard design creates a different development context by separating the through traffic from the
adjacent land uses by means of planted medians, access lanes, and on-street parking. Locating BRT and motor
vehicle through-traffic in separate, dedicated lanes in the center of the street enhances the flow of BRT and
vehicular traffic and maintains Franklin Boulevard’s function as a major arterial. Local traffic will be in
separate, low-speed access lanes, between the through-traffic and sidewalk. This new lane configuration
improves the efficiency and safety of through traffic by removing multiple access points. Furthermore, the
access lanes accommodate on-street parking to support future mixed-use development on both sides of

Franklin Corridor Partnership Page 3 of 16

Franklin Boulevard. Continuous wide sidewalks will provide for an inviting, safer, and convenient environment
for pedestrians to walk along Franklin Boulevard and access retail businesses, institutions, restaurants, hotels,
and residences. The goal is for it to feel more like a main street than a busy arterial. The planted medians and
on-street parking, as well as the street trees, create a buffer between the pedestrians and the busy arterial.
Curb extensions and/or stop controls at intersections reduce crossing distances and improve pedestrian safety.
Redesign also provides significant benefits of increased accessibility for cyclists.

Promote Equitable, Affordable Housing: Sustainable communities must be inclusive and provide
opportunities for people of all races, ethnicities, ages, disability status, and income levels to live within a
community. Due to the Franklin Corridor’s desirable central location, natural amenities, access to employers
and institutions, and plans for adjacent vibrant, mixed-use neighborhoods, it is likely that housing will be out of
reach for low income persons unless proactive measures are taken to preserve and build affordable housing.
Building on the City of Eugene’s extensive experience with landbanking for affordable housing, the Cities will
utilize this grant to provide funds for the acquisition of at least two sites for future affordable housing
development. These sites, which the cities will ultimately offer to non-profit affordable housing developers
through a public Request for Proposals, will result in the development of a mix of housing types accessible to a
full range of households with very-low to low incomes. These housing units will also provide an opportunity
for potentially displaced mobile home park residents in the Franklin Riverfront to continue to live in affordable
dwellings located in a desirable riverfront setting.

Transportation is the second highest household cost behind shelter, so reducing transportation costs,
especially for very-low to low-income families, frees up income for housing and other essential household
expenses, provides affordable access to jobs, and offers convenience if services cluster nearby in mixed-use
centers. The areas identified for acquisition are within planned mixed-use centers and within ¼ mile of existing
and planned BRT stations. The target areas are similarly within ¼ mile to on- and off-street bicycle and
pedestrian routes, all and each of these provide opportunities for reduced household transportation costs.

Enhance Economic Competitiveness: The Cities of Eugene and Springfield have partnered with Lane County to
establish an economic development task force to develop a collaborative public agency response to the
current economic climate. Promoting redevelopment through infrastructure investment is one key economic
development strategy.

Eugene and Springfield have historically served as the regional center for growth and commerce in the
metropolitan area. The Franklin Corridor connects major dynamic economic activities in downtown Eugene,
the University of Oregon, the Riverfront Research Park, Glenwood, and downtown Springfield, and it has direct
access to Interstate 5, the most important transportation corridor on the West Coast. Employers along the
Franklin Corridor together make up the largest concentration of employment in this metro region.
Additionally, the Franklin Corridor has been the initial 4-mile spine of the region’s envisioned 61-mile BRT
system, so the multiway boulevard will improve economic competitiveness through reliable and improved
access from residential areas to employment centers, educational opportunities, services, and other basic
needs throughout the region by residents, workers, and visitors.

The Franklin Corridor has significant potential for enhancing economic opportunities given the proximity to
downtown Eugene, downtown Springfield, the University of Oregon, and the Riverfront Research Park. Both
Cities have established urban renewal districts and have the ability to provide business loans to support
economic development and job creation activities. The multiway boulevard and resulting transit-oriented
development will create an attractive environment for more business activity. As technology companies
continue to spin out of the University, improved transit, bicycle, and pedestrian access to adjacent properties
will improve their connectivity with these organizations and attract other new businesses to co-locate within
this area, creating economic and environmental efficiencies.  

Franklin Corridor Partnership Page 4 of 16

Support Existing Communities: The Franklin Corridor Partnership was formed to cooperatively support
existing communities by capitalizing on unique assets and opportunities in the heart of the Eugene-Springfield
region. Transportation improvements and redevelopment projects facilitated by this grant will enable Eugene
and Springfield to bring regional plans for complete streets and complete neighborhoods to fruition. The State
of Oregon requires every community to have an approved Urban Growth Boundary and to focus growth
management efforts within existing urban boundaries before expanding outward onto surrounding farm and
forest land. Both Cities are in the process of updating their comprehensive plans to accommodate projected
growth over the next 20 years. The Cities’ policies have supported mixed use redevelopment as a growth
management strategy for over thirty years, and current plans to accommodate growth depend heavily on
redevelopment opportunities in neighborhoods along the Franklin Corridor and reduce the need for costly
expansion of each city’s Urban Growth Boundary. In addition, transforming the character of the area supports
existing residents within and nearby the corridor by enhancing access to build complete commercial service
and employment centers.

Coordinate Policies and Leverage Investment: Eugene and Springfield share multiple planning and policy
frameworks, including the Metropolitan Area General Plan, the Eugene Springfield Consolidated Plan, and
TransPlan. The policy focus for managing growth in TransPlan is a system of mixed-use centers linked by a BRT
system. The Franklin Corridor is the first leg in the overall 61-mile system planned to serve the metro area.
Along the Franklin Corridor, Eugene has adopted a mixed-use plan for Walnut Station, and Springfield has
adopted a mixed-use concept plan for the Franklin Riverfront in Glenwood. The recently completed  Eugene‐
Springfield  Consolidated  Plan  2010 identifies a critical, continuing need  for  affordable  housing  for  very-low
and low‐income persons and identifies land banking as a central implementation strategy. Once purchased
land bank sites are offered for development along with federal and local resources. This process has created
early buy-in from local government and extremely competitive projects for resources distributed through the
State’s Consolidated Funding Cycle.

State and federal investments in the Franklin BRT system total $24 million thus far. A new signature bridge
over the Willamette River for Interstate 5 is currently under construction at a cost of $201 million. Springfield
recently invested over $1.6 million in local funds for sewer infrastructure upgrades along Franklin Boulevard in
Glenwood. Both Cities have also invested nearly $2 million dollars in federal, state, and local funds on planning
studies for the Franklin Corridor over the past decade. The University of Oregon is also investing heavily in its
properties along the Franklin Corridor. Recently completed or under construction developments include a $41
million Academic Learning Center, $30 million Alumni Center and $65 million Integrated Science Building. Also
under construction is a $200 million basketball arena, the development of which was made possible by the
relocation of the $34 million US Bakery facility to a large industrial site in Glenwood in 2006. Private
investments include the under-construction $9 million five-story Courtside Apartment building with ground
floor retail and a recently constructed Holiday Inn Express. A number of these projects are contributing tax
increments to Urban Renewal Districts located in each city along the corridor. Such funds will be used to
provide match funding for boulevard improvements and property acquisition for affordable housing projects.
However, additional private sector investment along Franklin Boulevard consistent with the community’s
vision is unlikely unless the street is reconfigured as a multiway boulevard.

Value Communities and Neighborhoods: Given Franklin Corridor’s unique assets both communities have
invested and will continue to invest heavily in this area. Improving the design of Franklin Boulevard and
reducing a barrier to affordable housing development through landbanking will connect and e nhance the
distinct characteristics of these districts by further investing in and stimulating private investment in healthy,
safe, and walkable neighborhoods. Not only will the project spur mixed-use redevelopment on infill sites in
these neighborhoods, but the projects will also enhance the livability of existing neighborhoods. In Glenwood,
for instance, the improved Franklin Boulevard design will help provide safer and more convenient access for
residents in the largely low-income residential neighborhood on the south side of Franklin Boulevard to BRT

Franklin Corridor Partnership Page 5 of 16

stations along Franklin Boulevard, a complete bicycle network, and as future open space and commercial
amenities on the Franklin Riverfront in Glenwood.

Residents of established neighborhoods within both Walnut Station and Glenwood have actively participated
in processes to establish a vision for the Franklin Corridor. The planning efforts value communities and
neighborhoods by including meaningful public involvement opportunities to affect the outcome. The recent
adoption of the Walnut Station Specific Area Plan garnered support from every involved stakeholder group,
including the Fairmount Neighborhood Association, Chamber of Commerce, and University of Oregon (see
attached letters of support) and earned an award from Eugene’s mayor for its collaborative planning process.
The 2005 adoption of Glenwood Riverfront Specific Area Plan, the 2008 Franklin Boulevard Study, and the
current Glenwood Refinement Plan Update Project likewise have and continue to earn broad support from a
number of Glenwood stakeholders, including Glenwood residents, business, and property owners, Springfield’s
business community, the area’s development and design community, affordable housing advocates, and the
general public (see attached letters of support).

Outcomes

Outcome B: Given the singular natural assets and opportunities for redevelopment along the Franklin
Corridor, the demand is great for high-end student and other market rate housing. There is no subsidized
permanent affordable housing in Walnut Station, and while affordable housing exists in Glenwood, this
housing stock is largely old, in need of extensive rehabilitation, on septic systems, and near locally unwanted
land uses, such as Lane County’s solid waste transfer station. The Franklin Corridor is an ideal location  for
placing quality, permanent affordable  housing  as it  offers  direct access  to  transit,  job  centers, services,
and  educational  institutions.   However, development of new permanent affordable housing in the Franklin
Corridor necessitates the use of public subsidies due to the high land prices in this area and the fact that
Oregon law prohibits inclusionary zoning.

Eugene and Springfield are committed to ensuring environmental justice in the Franklin Corridor, and this
grant will help to proactively implement this commitment. Based on the areas identified for landbanking
through this grant application, Springfield projects adding 50 permanent high-density affordable housing units
to the housing supply in Glenwood. Eugene similarly plans to add 50 permanent medium- or high-density
affordable housing units to the housing supply in Walnut Station. All of these units will be located in desirable
mixed-use centers integrated with open space amenities and within ¼ mile of on- and off-street bicycle and
pedestrian routes. The new affordable housing will also be located within ¼ mile of BRT stations, which
provide frequent transit service and less than 30-minute transit commutes to major employment centers in
the region, including downtown Eugene, downtown Springfield, the University of Oregon, Riverfront Research
Park, two major medical centers, and Springfield’s Gateway District.

The development of new permanent affordable housing units made possible through this grant will enable
very-low and low-income households currently living in the Franklin Corridor to remain in their neighborhoods
in the face of rising land prices, redevelopment pressure, potential septic system failure, and potential mobile
home park closures. This grant will also enable the Cities to concentrate new affordable housing opportunities
in mixed-use, mixed-income areas, resulting in a more diverse mix of residents in a desirable location in
proximity to BRT, open space amenities, bicycle networks, educational opportunities and employment and
service centers.

Outcomes A & E: This project will result in travel changes, including mode share and reduced vehicle miles
traveled (VMT), which, in turn, improves energy efficiency, reduces dependence on oil, reduces greenhouse
gas emissions, improves air quality in the Willamette Valley, and benefits the environment. Transportation is
responsible for approximately 50% of greenhouse gas emissions in the Eugene‐Springfield area and is a major

Franklin Corridor Partnership Page 6 of 16

consumer of petroleum. Thus, any concerted effort to significantly reduce greenhouse gas emissions and oil
consumption in this area must focus on transportation and reducing the use of single‐occupant automobiles.
Studies show that the average household in which at least one member uses public transportation drives 16
fewer vehicle miles per day compared to households that do not use public transportation. In addition, each
individual who makes the change to a non‐auto form of transportation reduces his or her annual carbon
dioxide emissions (CO2) by 4,800 pounds per year. The Franklin Corridor’s pedestrian, bicycle, and transit
improvements will greatly increase the likelihood of non‐auto modes of travel through this corridor, which, in
turn, will improve energy efficiency, reduce dependence on oil, and reduce greenhouse gas emissions. The
project will demonstrate that complete streets and complete neighborhoods can accrue environmental
benefits for generations to come.

In 2007, LTD started operating its first BRT route along the Franklin Corridor. As a result, transit ridership in
this corridor has doubled. With both cities anticipating significant redevelopment and implementation of
mixed-use centers along segments of the route, LTD elected to exercise the flexibility of BRT and run in mixed
traffic and other scaled-back modes of operation through Glenwood and part of Walnut Station pending
completion of planning efforts by the two Cities. This project will take the next step toward realizing a fully-
featured BRT line along the entire length of the corridor between downtown Eugene and downtown
Springfield.

Currently, the three BRT stations in Glenwood average approximately 100 boardings per station per weekday.
Ridership on BRT in route segments that have a full complement of BRT features (exclusive transit lanes, fully‐
developed stations, and signal priority) and that serve more developed portions of the corridor have averaged
approximately 500 boardings per station. If this ridership level is applied to Glenwood, there will be a total of
1,500 BRT boardings at the three Glenwood stations once Glenwood redevelops and dedicated BRT treatment
provided. It is estimated that this ridership increase will result in the reduction of 1.4 million VMT and 640
metric tons of CO2 emissions annually. Further, at this time, bicycle and pedestrian travel in Glenwood is
minimal due to the lack of safe and convenient sidewalks and bike facilities. Shifts from auto to bicycle and
pedestrian modes can be expected from the bicycle and pedestrian improvements resulting from this grant,
and that mode shift will further reduce VMT and CO2 emissions.

The Walnut BRT Station is located on Franklin Boulevard west of the Glenwood BRT stations.  Presently,
Walnut Station has all of the elements of BRT (exclusive transit lanes, fully-developed stations, and signal
priority) except that the exclusive transit lanes are mostly bi-directional lanes and supports an average of 283
boardings per weekday.  As a main junction point to the off-street bicycle path that runs between Eugene and
Springfield, and in a high-priority development node, Walnut Station is believed to experience some of the
highest bicycle-to-bus transfers throughout the system.  Future development and capital improvements slated
for this area will likely foster even more bike-bus transfers and ridership increases, thereby assisting with the
reduction in VMT and CO2 emissions along the Franklin Corridor.

Rating Factor 2: Work Plan

The following narrative discusses the three primary outcomes of the Franklin Corridor Partnership, the
intermediate goals or outputs that will lead to the identified outcomes, and the performance measures that
will be used to determine the progress of the partnership toward achieving the outcomes. The primary
outcomes are considered to be long-term goals and will be achieved when the build-out of the Franklin
Corridor is completed and the affordable housing has been developed. Intermediate goals may be achieved as
development milestones are reached, and discrete phases of the development come on-line.

Outcome A
The basis for this goal is the understanding that there is a direct correlation between convenience and use.
Making efficient and cost effective modes of transportation more accessible and convenient to use will result

Franklin Corridor Partnership Page 7 of 16

in increased use of these modes and lead to a proportional decrease in the use of less efficient modes. The
Partnership identified three key outputs or intermediate goals that will guide the development of the Franklin
Corridor and help to ensure progress toward this primary goal. These are (i) Increase the use of mass transit
systems, (ii) Improve bicycle connectivity in the Franklin Corridor, and (iii) Improve pedestrian and bicycle
infrastructure along the Franklin Corridor. The Partnership will evaluate the progress being made toward
achieving these intermediate goals based on the following measures:

 Percent increase in daily EmX ridership through Franklin Corridor. This performance measure will
evaluate the effectiveness and convenience of the EmX transit system. The benchmark will be current
daily ridership.
 Percent increase in peak-period EmX ridership. This performance measure will evaluate the benefits of
improvements to the EmX transit system to riders commuting to and from work and school. The
benchmark will be current peak-period ridership.
 Percent increase in bicycle trips through the Franklin Corridor. Using existing bicycle counts as a
benchmark, this performance measure will evaluate the effectiveness of the Franklin Corridor to
increase the safety and convenience of bicycle routes between Eugene and Springfield.

 Number of miles of improved sidewalks and bike routes. Using current infrastructure as a benchmark,
this performance measure will evaluate the effectiveness of the investments made to improve the
Franklin Corridor for walking and biking.

Outcome B
The basis of this goal is the understanding that housing affordability cannot be fully measured without
consideration of the transportation costs of the household. The Partnership has identified three key outputs
or intermediate goals that will guide the development of the Franklin Corridor and help to ensure progress
toward this primary goal. These are (i) Increase accessibility of low-cost transportation modes to existing low-
income neighborhoods, (ii) Acquire sites for affordable housing development in proximity to alternative
transportation options, and (iii) Create new, affordable housing. The Partnership will evaluate the progress
being made toward achieving these intermediate goals based on the following measures:

 Number of new housing units within ¼ miles of alternative transportation options. This performance
measure will evaluate how accessible, low-cost transportation modes are for residents of newly
constructed housing.
 Number of new housing units within a less than 30-minute transit commute to urban centers. This
performance measure will evaluate how the strategic placement of affordable housing can shorten
commute times and reduce transportation costs.
 Number of affordable housing landbank sites acquired that will be served by Franklin Corridor
improvements. This performance measure will evaluate the effectiveness of the landbanking
investments of the Franklin Corridor Partnership.

 Number of existing low-income neighborhoods served by Franklin Corridor improvements. This

performance measure will evaluate the benefits of the Franklin Corridor improvements to existing low-
income neighborhoods.

Outcome E
This broad goal recognizes that environmental impacts are an integral piece of any discussion on regional
sustainability. This goal acknowledges the community benefits of promoting more efficient modes of
transportation, energy efficient designs, and environmentally responsible construction practices. The
Partnership has identified three key outputs or intermediate goals that will guide the development of the
Franklin Corridor and help to ensure progress toward this primary goal. These are (i) Improve the multi-modal

Franklin Corridor Partnership Page 8 of 16

transportation corridor connecting Eugene and Springfield downtowns, (ii) Create new energy efficient,
environmentally responsible housing units (Energy Star, LEED), and (iii) Develop new affordable housing in
proximity to commercial, retail, and employment centers. The partnership will evaluate the progress being
made toward achieving these intermediate goals based on the following measures:
 Number of high-efficiency housing units developed. This performance measure will evaluate how
effective the Partnership is in developing housing that meets established industry standards for
energy-efficient design and environmentally responsible building practices.

 Number of housing units developed within two miles of existing urban centers. This performance
measure will evaluate how effective the Partnership is in developing housing in locations that
encourage the use of energy-efficient modes of transportation.
 Number of miles of multi-modal transportation corridor created. Using the existing infrastructure as a
benchmark, this performance measure will evaluate the effectiveness of the investments made to
improve the Franklin Corridor.

Milestones and Obstacles

Important milestones will be used to track the progress of the Franklin Corridor Partnership project. The initial
milestones will help track the activities that this grant will help fund and are shown in the timeline included in
Table 2. Initial milestones for the transportation element include selecting the environmental consultant,
completing the Environmental Resource Analysis and Reports, completing the Environmental Assessment, and
completing the preliminary design of the Franklin Corridor. Initial milestones for the housing element include
identifying suitable sites in the Franklin Corridor, completing the environmental assessments for each site, and
completing site acquisition. Long-range milestones are those that will mark progress toward achieving the
three primary objectives. For the transportation element, these include acquiring the necessary public right of
way, developing the final corridor design, and completing construction of the multiway boulevard. For the
housing element, the long-range milestones include selecting the developers, completing the final project
design, final construction, and lease-up.

There are several potential obstacles that may impede or delay the project as it is being developed.
Environmental concerns may arise from the NEPA analysis which will require mitigation. The cost of land
acquisition and development may require higher levels of assistance from federal, state, and local sources.
Current property owners may be reluctant or unwilling to sell their property. However, all members of the
Franklin Corridor Partnership are very experienced in land development for various uses and have the
expertise and capacity to successfully navigate the many anticipated and unanticipated obstacles that may be
encountered. All partner agencies rely heavily on careful and thoughtful planning, community outreach, and
comprehensive public involvement processes early in the development process to identify and mitigate
problem areas. The two Cities and partner agencies will continue to use these established processes to guide
their decision making throughout the Franklin Corridor development.
Table 1: Project Budget
The proposed Work
Transportation Element
Plan provides
Direct NEPA Documentation $1,600,000
information for the
Public Involvement $275,000
proposed budget
30% Design $955,000
(including match),
Indirect (Not part of match or grant request)
activities, and
Total Transportation Project Costs $2,830,000
timelines. Table 1
illustrates the Project Housing Element
Budget and Table 2 the Direct Land Acquisition $1,656,000
proposed activities and Indirect Appraisals
timelines. Legal fees
$144,000
Environmental Studies
Title & Closing Costs
Franklin Corridor Partnership Total Housing Project Costs Page 9 of 16
$1,800,000
Project Grand Total Costs $4,630,000
 2010 2011

Fall Winter Spring Summer Fall

(TIGER

NEPA
Select Consultant

Enviromental Project / Contract

Management

Purpose and Need Statement

Public Involvement
Tr a n s p o r t a t io n El e me n t
II Gr a n t )

Transportation Analysis

Access Management

Environmental Resource Analysis

and Reports
Prepare Enviromental Assessment
(EA) Document

30% Desgin

Surveying

Preliminary Design

Land Acquisition
H o u s in g

Site Identification & Secure Option

El e me n t
(CCP G)

Public Involvement & Local Approval

Enviromental Assessment

Site Purchase

Transportation Key Milestones Housing Key Milestones

NEPA Land Acquisition
Select Consultant Access Management Site Identification & Secure Option
Issue RFP for Consultant Existing Access Inventory Analysis of Housing Suitability Factors
Select Consultant Build Alternative affect on access Execution of an Option to Purchase
Environmental Project / Contract Management Environmental Resource Analysis & Reports Contract for Appraisal
Project Execution Plan Draft Enviromental Tech. Memo Public Involvement & Local Approval
Presentation to Regulatory Agency Final Enviromental Tech. Memo Publish Public Notification
Complete Project Management Prepare EA Document Elected Offi cial Approval
Purpose & Need Discussion Draft EA Environmental Assessment
Finalize Purpose & Need Statement Camera-Ready EA Begin 8-step NEPA Process
Finalize Evaluation Criteria Record comments on EA Receive Realease of Funds
Public Involvement 30% Design Site Purchase
Finalize Public Involvement Plan Surveying Close on Selected Properties
Public Open house Initial Field Work
Conclude Public Outreach Final Survey Approval
Transportation Analysis Preliminary Design

Table 2: Project Activities & Timeline Technical Memorandum

Final Report
Initial Scoping & Design
30% Design Approval

Although it is not included in the budget for this grant, it is important to identify anticipated and potential
sources of development funds that will be needed to complete the build-out of the Franklin Corridor and
associated affordable housing developments. The Cities of Eugene and Springfield anticipate that funds from
their annual allocations of HOME Investment Partnerships Program will be used to assist with the development
of affordable housing within the Franklin Corridor. In addition, both jurisdictions have created urban renewal
districts to generate funding via tax increment financing that will be invested strategically to support
affordable housing development and other redevelopment within the Franklin Corridor.  We will be working
with our Congressional delegation during annual appropriations for transportation construction costs,
including seeking future funding through the upcoming reauthorization of the federal Transportation Bill.

Franklin Corridor Partnership Page 10 of 16

Rating Factor 3 – Leveraging and Collaboration
Matching Funds
Reflecting the importance and level of community support of the Franklin Corridor Partnership, the Cities of
Eugene and Springfield have committed an average of 48% monetary match: 46% local match for the
multiway boulevard NEPA studies and preliminary design, and a 50% funding match for the acquisition of land
for affordable housing. The amount and sources of matching funds are summarized in Table 3:

Table 3: Eligible
Grant Grant Local % Source of Match Proof of
Match Jurisdiction Basis
Source Request Match Match Funds Commitment?
4
TIGER II City of $704,000 $300,000 54% Local Tax Local Yes1
Springfield Increment;
Transportation
System
Development
Charges;

$80,000 Lane Transit

District
City of $945,000 $380,000 40% Local Tax Local Yes2
Eugene Increment
Subtotal TIGER II $1,649,000 $760,000 46% See above Local YES1,2

Community City of $600,000 $200,000 CDBG Federal Yes3

Challenge Springfield Entitlement Yes1

$100,000 50% Local Tax Local

Increment
City of $600,000 $300,000 50% CDBG Federal Yes2
Eugene Entitlement
Subtotal Community $1,200,000 $600,000 50% See above Federal Yes2,3
Challenge Entitlement
Grant and Local
Grand TIGER II and Local Tax Federal
Total Community $2,849,000 $1,360,000 48% Increment and Entitlement Yes1, 2, 3
Challenge CDBG and Local
Grant
Notes:
1 See letter from City of Springfield Economic Development Manager and letter from Lane Transit District, in attachments.
2 See letter from City of Eugene City Manager, in attachments.
3 See letter from City of Springfield City Manager, in attachments.
4 The City of Springfield also committed $421,000 of STP-U funds.

Additionally, there will be substantial in-kind local match provided in the form of services, equipment, and
supplies allocated to the program, pending successful award from DOT and/or HUD.

Commitment to the match funding is contained in the attached letters from two City Managers, the Economic
Development Manager of Springfield, and the General Manager of Lane Transit District. These signatories are
legally authorized to make commitments on behalf of their organizations or to represent commitments made by
their elected bodies. There are no sub-grantees.

Franklin Corridor Partnership Page 11 of 16

Responsibilities: As outlined in the attached draft Intergovernmental Agreement, the City of Springfield will act
as applicant for both jurisdictions and be responsible for overall grant management and communications with
the grantors. The Cities of Eugene and Springfield will be responsible for the management and expenditure of
funds within their respective jurisdictions. LTD will provide funding and, with the ODOT, provide technical
assistance to the two Cities. All participants will collaborate and share information on d esign, timing of public
outreach and construction, and housing landbank acquisitions and program administration.

Leveraged Funds: The grantees have long enjoyed a cooperative partnership in which regional integrated land
use-transportation plans are created and implemented through mutual and strategic fund leveraging. The
Franklin Corridor Partnership represents a relatively small, but critical, fulcrum in the overall implementation of
these complete neighborhoods. Many resources have been spent to reach this point and, after the
environmental clearance and acquisition of landbank housing sites, more will be spent for construction.

Table 4: Additional Match

Source of
Jurisdiction Activities Match Match Funds
Previous Planning City of Springfield Specific Area Planning: $330,000 State grants
and Transit Glenwood Riverfront Not Measured Local in-kind
City of Springfield Franklin Boulevard Study $200,000 Federal (STP-U)
Not Measured Local In-kind
  City of Springfield Glenwood Refinement $500,000 Local Tax Increment
Plan: Glenwood Riverfront Not Measured Local In-kind
City of Eugene Specific Area Plan: $310,000 State grants
Walnut Station $350,000 Local In-kind
Cities of Eugene & Consolidated Plan Unknown Federal (HUD)
Springfield (Regional Housing )
LTD EmX Transit Construction $24,000,000 $19,200,000 Federal
$4,800,000 Local
ODOT Technical Assistance and Unknown Unknown
Additional Funding
SubTotal $25,690,000 $19,400,000 Federal
$640,000 State
$5,650,000 Local
Post-Grant City of Springfield Right of Way Acquisition $45,000,000 Local Tax Increment
Implementation and Construction and undetermined
City of Eugene Right of Way Acquisition $14,497,662 Local Tax Increment
and Construction and undetermined
LTD EmX Transit $2,120,000 Federal and Local
Improvements,
ODOT Technical Assistance and Undetermined Undetermined
Additional Funding
City of Springfield Affordable Housing Undetermined Federal (HOME)
Construction Local Tax Increment
City of Eugene Affordable Housing Undetermined Federal (HOME)
Construction Local fee/tax waivers
SubTotal $61,617,662 Federal, State, Local

Franklin Corridor Partnership Page 12 of 16

This TIGERII/CCPG grant represents only 3% of the overall Franklin Corridor project costs, but it provides the
necessary leverage to implement the community vision. This project is also expected to leverage private sector
jobs in the community.

Per Capita Income Relative to the Metropolitan Average: The populations of the Cities of Eugene and
Springfield comprise the population of the Eugene-Springfield Metropolitan planning area; therefore the
jurisdictional per capita income is the same as the metropolitan area’s per capita income. The per capita
incomes of the Cities of Eugene and Springfield are $24,678 and $19,061 (89.8% and 69.4% of the national
average), respectively. (Source: US Census)

Letters of Support: Community support is demonstrated by the letters of support that are provided as
attachments from a broad cross section of the Eugene-Springfield community. Among others, letters are
provided by the President of the University of Oregon, the entire Eugene-Springfield Congressional delegation,
all neighborhood associations within the project area, both cities’ Chambers of Commerce, the Chair of the
Oregon Transportation Commission, and the Director of the Oregon Department of Housing and Community
Services.

Rating Factor 4: Capacity

Transportation Element
The partnership agencies have been working together for several decades. Together, the Cities of Springfield
and Eugene, Lane County, LTD, and the ODOT have achieved significant regional coordination through efforts
including:

 Establishing the oldest regional council in the country, the Central Lane Planning Council formed in
1948; and
 Co-adoption of an integrated land use and transportation plan originally in 1970, most recently
updated in 2007.

Most of the staff that will be managing the TIGER II element of the project are part of a regional team that has
been meeting weekly for the past 15 years. This high level of regional, interdisciplinary coordination as well as
the experience described below provides a clear indication of the capacity the partnership has to carry out this
project in a coordinated and timely manner.

Prior Experience: Springfield and Eugene will be the lead agencies implementing the NEPA and preliminary
design work for the Franklin multiway boulevard project. However, they will have considerable support from
ODOT and LTD. With this considerable experience as described below and in the attached staff summaries, all
four agencies are able to initiate the project immediately upon notice of award.

Springfield: Current Springfield staff have significant experience in both a city and ODOT capacity, working on
Intestate improvement projects, including the current $200 million upgrade to the I-5/Beltline interchange and
the planned grade separation of OR 126 Expressway and OR 126 Business, as well as two significant LTD EmX
projects, including the NEPA, design, and construction phases on both projects. Springfield’s current
engineering, transportation, survey, and planning staff have decades of experience delivering a wide variety of
federally-funded new and significant improvement projects on roadways and shared-use paths on the City’s
local system. Springfield staff have received HUD training on Federal regulations and compliance. Staff are in
the process of completing local agency certification through ODOT to directly deliver federal aid projects.

Eugene: The City of Eugene has a 34-member Engineering Project Team comprised of Professional Civil
Engineers, Engineering Associates, Technicians, and Landscape Architect staff that survey, design, inspect, and
administer contracts to construct new infrastructure.  In addition to experience in design and management of

Franklin Corridor Partnership Page 13 of 16

federally funded projects, the City’s project management staff have attended multiple ODOT trainings on
design, environmental process, and construction administration for federally-funded projects. The City
contracts with consultants for specialty work, such as environmental analysis and bridge design and
inspection.  Eugene is in the process of completing several projects under the ODOT Conditional Certification
program.  The City has significant experience on federal aid projects both as a local agency under contract with
ODOT and as a conditionally certified agency in all project phases, including NEPA phase, preliminary design,
final design, and construction administration.  Recent modernization projects that include federal funding and
a NEPA phase include the Chad Drive Extension, Courthouse Transportation Improvements, Delta Ponds
Bicycle and Pedestrian Bridge, and the West Bank Path Extension with construction slated to begin Fall 2010.

LTD: LTD has completed project development of two EmX corridors and is currently working on a third with the
City of Eugene. Not only is this prior experience with the federal NEPA process, but it has also provided LTD
and the two cities invaluable experience in the process of developing corridor-based projects. Corridor-based
projects have a unique set of technical, policy, and public engagement challenges. The experience of the first
two corridors has given LTD insights into improving the process being used in the third corridor. These
improvements are primarily focused on developing a more integrated staff level effort between LTD and
Eugene as well as incorporating the staff resources of the Lane Council of Governments. The project's success
rests on achieving excellent federal-state-local coordination, strong public outreach, and a process that keeps
policymakers informed and engaged throughout the effort.

ODOT: ODOT is a recognized leader in innovative project delivery. ODOT has committed environmental project
management, local agency liaison, project leader, planning, design, and traffic analysis staff to participate on
the project delivery team in support of the project.

Capacity Building: As described above, the partnership brings to this project several decades of experience
working together to achieve successful regional improvements. Over this time, the organizations have been
able to develop a strong body of knowledge in working together toward regional goals. As part of this project,
the Partnership will establish explicit goals for broadening and deepening organizational skills and technical
expertise both with respect to corridor-based project development and the process of working together.

Data Sharing & Collection: This project will serve as a model for our region, the State of Oregon, and the
nation for how to integrate a multiway boulevard and bus rapid transit within one corridor. We plan to
document the public process and the design for dissemination locally, statewide, and nationally through
conferences, papers, and the project website.

Housing Element
The Cities of Eugene and Springfield are uniquely positioned to work collaboratively and effectively to acquire
land and facilitate development of quality affordable housing.  This exceptional capacity stems from: 1) a
lengthy history of collaboration and local commitment to the creation of affordable housing; 2) significant
developer capacity; and 3) tremendous local experience with the targeted acquisition of land for multifamily
housing.

Collaboration and Local Commitment: The Cities of Eugene and Springfield along with Lane County, formed
the Intergovernmental Housing Policy Board in 1993 to facilitate the development of affordable housing.  In
1993, the Cities also formed the Eugene-Springfield HOME Consortium and since that time have jointly
developed strategies and programs to support the development of affordable housing.  Both Cities have
devoted local resources, in addition to federal resources, to support housing and community development
staff, programs, and projects.  In addition, both Cities are committed to providing affordable housing for a
range of needy populations throughout each city and affirmatively furthering fair housing opportunities.

Franklin Corridor Partnership Page 14 of 16

Developer Capacity: Eugene and Springfield are served by four Community Housing Development
Organizations, multiple special needs organizations, and a high performing public housing authority (Housing
and Community Services Agency of Lane County).  Working in partnership, these organizations and the City
have realized the development of over 4,000 affordable rental units. With a commitment of local resources in
hand, developers have competed successfully again and again for highly competitive state and national
resources.  The completed projects have won numerous design and livability awards from HUD, Enterprise
Foundation, State of Oregon, Fannie Mae Foundation, and the American Institute of Architects.

The Cities and local organizations pay particular attention to development locations and work collaboratively
with LTD to maximize transit access for residents who often cannot afford automobiles and/or are unable to
drive.  Lastly, each developer has created a suite of resident services to improve nutrition and parenting skills,
provide access to drug and alcohol counseling, job training, computer skills, and financial management skills.

Experience: In 1979, the City of Eugene purchased its first landbank site for affordable housing.  Since that
time, the City has purchased nearly 90 acres for new affordable housing throughout the community using a
combination of federal and local funds.  Prior to purchase, the City carefully evaluates parcels to ensure: 1)
access to jobs, public transportation, services, and amenities; 2) dispersal of affordable housing throughout the
community; 3) suitable environmental conditions; 4) appropriate zoning and utility infrastructure; and 5) cost.
Sites are offered for development, along with other development subsidies, through a competitive proposal
process and evaluated based on project feasibility, target population, project design and services, and a cost
and benefit analysis.  Thus far, 718 units have been developed on these sites and 110 units are in the
development pipeline.
Map 1: Franklin Corridor Area Map The City of Eugene received
national recognition for its
landbanking program
through Harvard’s
Innovations in American
Government Award in 2007
and received a $10,000 grant
to disseminate information
regarding the program to
others.  The City of Eugene is
utilizing these funds to create
a landbanking toolkit, which
it expects to launch in
October.  

Although the City of

Springfield is new to
landbanking, Springfield staff
has worked closely with City
of Eugene staff and the
Intergovernmental Housing
Policy Board to understand
the benefits, impediments,
and process of landbanking. Springfield will benefit from the housing development and landbanking expertise
that the Eugene staff brings to the partnership, and plans to model its own landbank program after Eugene’s.

Franklin Corridor Partnership Page 15 of 16

Franklin Corridor Partnership Page 16 of 16