U.S. Department of Transportation

Federal Railroad Administration

Record of Decision for the

Springfield Rail Improvements Project

Springfield, Illinois 

December 2012

Prepared by:

For more information contact:

Andréa E. Martin

Federal Railroad Administration

1200 New Jersey Avenue SE, Mail Stop 20

Washington, DC 20590
Record of Decision for the

Springfield Rail Improvements Project 1

1.0 Introduction

This Record of Decision (ROD) selects alternative 2A for the Springfield Rail 

Improvements Project, which would consolidate and improve rail lines in the City of 

Springfield, Illinois. The Springfield Rail Improvements Project is one part of the

proposed Chicago to St. Louis High-Speed Rail Corridor Program to make further 

improvements to high-speed passenger rail service between Chicago, Illinois, and St. 

Louis, Missouri. 

The Illinois Department of Transportation (IDOT) and the Federal Railroad 

Administration (FRA) used a tiered environmental process in this environmental 

evaluation. This tiered environmental review process is commonly used in the 

development of complex phased projects. The Springfield Rail Improvements Project is

evaluated in Volume II of the Tier 1 Environmental Impact Statement (EIS) for the

Chicago to St. Louis High-Speed Rail Program. This ROD is for the Springfield Rail 

Improvements Project and makes decisions about site-specific rail improvement 

alternatives in the City of Springfield, Illinois only, and does not pertain to a decision for 

the Chicago to St. Louis High-Speed Rail Program.

FRA has issued a separate ROD for the Chicago to St. Louis High-Speed Rail Corridor 

Program. The Springfield Rail Improvements Project is also referenced as the 

Springfield Project in this ROD. 

IDOT prepared the Tier 2 environmental evaluation for the Springfield Project, in 

coordination with the FRA. Federal Cooperating Agencies for the Springfield Rail 

Improvements Project have included the Federal Highway Administration (FHWA), the 

U.S. Army Corps of Engineers (USACE), the U.S. Fish and Wildlife Service (USFWS), 

and the U.S. Environmental Protection Agency (USEPA). Federal agencies with specific 

review, consultation, and/or permitting roles, include but are not limited to, the Natural 

Resources Conservation Service (NRCS), the U.S. Coast Guard (USCG), and the U.S. 

Department of Commerce (USDOC).

In making this decision, FRA considered the information and analysis from the Tier 1 

and Tier 2 evaluations within the 2012 Tier 1 Draft Environmental Impact Statement 

(Draft EIS) and the 2012 Tier 1 Final Environmental Impact Statement (Final EIS) for the 

Chicago to St. Louis High-Speed Rail Corridor Program (collectively the “EIS 

Documents”). FRA also considered public and agency comments received during the 

public comment periods for all of the above documents. 

This ROD for the Springfield Rail Improvements Project has been prepared in 

accordance with the Council on Environmental Quality’s (CEQ) regulations 

implementing the National Environmental Policy Act (NEPA), (40 CFR Part 1500) and 
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Springfield Rail Improvements Project 2

FRA’s Procedures for Considering Environmental Impacts (64 FR 28545, May 26, 1999). 

Specifically, this ROD: 

• States and reaffirms the Springfield Rail Improvements Project Purpose and 

Need.

• Identifies the alternatives considered but dismissed and the alternatives 

considered for the Springfield Rail Improvements Project, including the 

environmentally preferred alternative. 

• Identifies the Selected Alternative for the Springfield Rail Improvement Project.

• Summarizes the environmental benefits and adverse effects. 

• Summarizes the comments received on the Final EIS regarding the Springfield 

Rail Improvements Project. 

• Presents the FRA Decision, determinations and findings on the Springfield Rail 

Improvements Project and identifies, and discusses the factors that were 

balanced by FRA in making its decision. 

2.0 Project Background

IDOT proposes the provision of two tracks between Chicago and St. Louis, including the 

section through Springfield, because of the needs for improved and expanded intercity 

passenger services. Multiple alignment options are available for the Chicago to St. 

Louis High-Speed Rail corridor through Springfield as presented in the EIS. The 

existing and projected rail traffic on the three north-south corridors through the City of 

Springfield causes vehicle traffic congestion, safety risks and other problems. These 

problems are primarily related to the multiple at-grade crossings in the three northsouth corridors. The crossings block vehicle traffic, increase risk of crashes and require 

trains to blow horns. The EIS analyzed alternatives through Springfield to enhance rail 

line capacity and to accommodate and reduce the effects of additional high-speed 

passenger rail and freight rail traffic on the three north-south rail corridors in 

Springfield.

Proposed high-speed rail improvements in the Chicago to St. Louis corridor, including 

the section through Springfield, are consistent with the Illinois State Transportation Plan 

(ISTP) and the individual policies in the ISTP (IDOT, 2007).

3.0 NEPA Process

IDOT, in coordination with the FRA, the Lead Agency for NEPA compliance for the 

Springfield Project, commenced the environmental review process in 2011. 

Considering anticipated permits and licenses needed for construction and operation of 

the Springfield Project, FRA requested and received the participation of the 

following Cooperating Agencies: FHWA, USACE, USFWS, and USEPA.
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Table 2.1 below summarizes major NEPA milestones of the Springfield Project.

Table 2.1. Summary of Major NEPA Milestones

Milestone Date

Notice of Intent & Public Scoping Meetings February – March 2011

Notice of Availability Published/Circulation of 

Draft EIS June 2012

Public Hearing: Springfield August 2012

Notice of Availability and Publication of Final EIS November 2012

The environmental process for the Tier 2 Springfield Rail Improvements Project began 

formally in February 2011. Scoping Meetings for the Springfield Project were held in 

March 2011, and a Draft EIS was published on June 29, 2012.

Volume I of the Tier 1 EIS for the Chicago to St. Louis High-Speed Rail Program

addresses broad corridor-wide issues and alternatives, and includes information on 

Program history and previous studies. Volume II containing the Tier 2 analysis for the 

Springfield Rail Improvements Project considers the recommended alternatives from the 

Tier 1 EIS in more detail. The Draft EIS presented the purpose and need for the

Springfield Improvements Rail Project, the reasonable range of alternatives for 

passenger and freight rail, the existing environmental setting, potential effects from 

construction, and identified mitigation measures to reduce or eliminate potential 

adverse environmental effects. The Draft EIS informed decision makers, interested 

parties, and the public about the differences among various alternatives and options. 

The Draft EIS was circulated for 45 days for public review and comment. A public 

hearing was held in Springfield to provide additional opportunity for the public to 

comment on the Draft EIS. 

Volume II of the Final EIS, published in November 2012, addressed changes to the Tier 2 

Springfield Rail Improvements Project as a result of public and agency comments on the 

Draft EIS. The document identified the Preferred Alternative for the Springfield Rail 

Improvements Project and evaluated the potential environmental effects of the Preferred 

Alternative. Mitigation measures for the Preferred Alternative were also identified in

Volume II of the Final EIS to reduce or eliminate adverse environmental effects.
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Springfield Rail Improvements Project 4

3.1 Scoping and Public Involvement

NEPA requires scoping and encourages early and frequent coordination with the public 

and resource agencies throughout the Springfield Project development process. Scoping 

for the Springfield Project included: 

• Notice of Intent: February 2011

• Public Meetings on the Scope of the EIS: March 2011

• Draft Scoping Report: July 2011

• Public Meetings on Draft Scoping Report and Alternatives: October 2011

IDOT and the FRA hosted five Public Open House meetings along the study corridor 

March 1-9, 2011. Along with two Resource Agency and five Local Officials meetings, the 

Public Open House meetings commenced the scoping phase of the environmental study. 

In late October 2011, a public meeting was held in Springfield to present the preliminary 

alternatives for each section of the corridor, and for the Springfield Rail Improvements 

Project, and the criteria to be used to evaluate them. 

4.0 Purpose and Need for the Springfield Rail 

Improvements Project

4.1 Purpose

4.1.1 Chicago to St. Louis High-Speed Rail

The Springfield Rail Improvements Project is one component of the proposed Chicago to 

St. Louis High-Speed Rail Corridor Program. The Springfield Rail Improvements 

Project would enhance a portion of the passenger transportation network in the Chicago

to St. Louis corridor by improving high-speed passenger rail service, resulting in a more 

balanced use of different corridor travel options by diverting trips made by automobile 

and air to rail. 

4.1.2 Springfield Rail Improvements Project

The purpose of the Springfield Rail Improvements Project is to enhance rail line capacity

in Springfield to accommodate and reduce the effects of the increasing high-speed 

passenger and freight train traffic on the three north-south rail corridors that pass 

through Springfield: the Union Pacific (UP), Norfolk Southern (NS), and Canadian 

National (CN)/Illinois & Midland (I&M), see Exhibit 3-1. The purpose includes reducing 

rail line effects by improving safety, reducing congestion, and enhancing community

livability and supporting commercial activity. 
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Springfield Rail Improvements Project 5

4.2 Need

4.2.1 Springfield Rail Improvements Project Need

The need for the Springfield Rail Improvements Project reflects the need for the Chicago 

to St. Louis High-Speed Rail Corridor Program and includes Project needs to address 

track capacity, safety, congestion, and community livability and commercial activity in 

Springfield. 

4.2.1.1 Track Capacity

The UP anticipates an increase in freight traffic on its line through Springfield. The 

number of daily freight trains is expected to increase from about five to about 27 by 

2030. The existing single track does not have sufficient capacity to carry these freight 

trains and the high-speed trains and meet the minimum service requirements. 

The other freight rail carriers through Springfield also anticipate increases in traffic on 

their rail lines. The current and projected number of trains on each of the rail lines 

through Springfield is shown in Table

3-1. Current rail traffic is based on field 

counts of the number and duration of 

trains in late 2009. The railroads 

furnished projected 2020 rail traffic.

Exhibit 3-1.

Existing Railroad Corridors
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Table 3-1. Number of Trains through Springfield

Current (2010) Rail 

Traffic

Projected (2030) Rail 

Traffic2 (No-Build)

Projected (2030) Rail 

Traffic3 (Build)

Union Pacific 10 Passenger

5 Freight

10 Passenger

27 Freight

18 Passenger

27 Freight

Norfolk Southern 16 Freight 27 Freight 27 Freight

Canadian National1

4 Freight 9 Freight 9 Freight

TOTAL 35 Trains 73 Trains 81 Trains

1 Includes I&M and KCS traffic on CN.

2 Projected 2020 rail traffic was furnished by each railroad company. UP- 22F, NS-24F, CN-8F

3 Projected 2030 rail traffic for NS and CN assumes a freight growth of 1.2 percent per year 

between 2020 and 2030. The UP projected rail traffic assumes a freight growth of 2 percent per 

year between 2020 and 2030.

As shown above, the total projected trains through Springfield would more than double 

over the next 20 years. 

As part of the needs for enhanced safety of the Chicago to St. Louis corridor, as 

documented in the Tier 1 EIS, there are also specific needs inherent to the Springfield 

Project study area, identified as follows: 

4.2.1.2 Improve Safety

There are 68 at-grade crossings in the Springfield study area. Each one of these 

represents a point of conflict between passenger and freight rail traffic and roadway 

traffic. Table 3-2 shows the number of at-grade crossings and grade separations in the 

Springfield study area by railroad.

4.2.1.3 Alleviate Congestion

All major east-west streets across Springfield have an at-grade railroad crossing. Many 

major streets such as North Grand Avenue, Carpenter, Adams, Washington, Laurel, and 

Ash streets cross all three railroads at-grade. A long train on any of these tracks can 

delay vehicle traffic through much of the City since it can simultaneously block almost 

all of the crossings on that track, and traffic queues can block vehicles on intersecting 

north-south streets. The I&M, NS and CN all have active rail yards in Springfield. 

Switching operations in these yards frequently block adjacent crossings with stopped 

trains or trains involved in back and forth movements.

4.2.1.4 Improve Livability and Commercial Activity

Noise

Train noise comes from the locomotive engines, air brakes, side-to-side car movement, 

slack-and-bunch car movement, wheels on rail joints, and locomotive horns blown by 

trains as they approach at-grade crossings. This noise is generated by both freight and 
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Springfield Rail Improvements Project 7

passenger (including high-speed) trains. Of these, train horns are the most disturbing. 

Because of the short distances between at-grade crossings in the rail corridors, trains 

must blow their horns almost constantly when moving through Springfield. The total 

duration of train horn noise in the study area is 207 minutes per day. Federal regulations 

provide public authorities the option to maintain and/or establish quiet zones provided 

supplemental safety measures are in place. There are currently no quiet zones in 

Springfield.

Each of the existing corridors passes through some residential areas, but the CN (19th

Street) and UP (3rd Street) corridors have the most adjacent residential development. 

The UP corridor passes near many sensitive receptors in the Mid-Illinois Medical 

District.

Community Division

The UP, NS, and CN/I&M railroads operate on separate north-south corridors through 

the City, at 3rd Street, 10th Street and 19th Street, respectively. These rail lines present 

physical and psychological barriers that split downtown and divide neighborhoods. 

These barriers have created a set of development patterns that work against a healthy 

downtown and neighborhoods by isolating portions of the community and restricting 

access. Attracting residential and commercial redevelopment adjacent to the tracks is 

also very difficult. Home buyers see neighborhoods that are frequently blocked from 

access to schools, shopping, and services by rail traffic as less desirable. The rail 

corridors, especially when the crossings are occupied by trains, inhibit neighborhood 

connectivity.

Community buildings exist along each of the three corridors. While some of these 

buildings provide services on a city-wide basis, many are neighborhood specific. Closed 

streets and blocked crossings from stopped trains inhibit access to these buildings and 

places or make access less safe by requiring the crossing of tracks or encouraging 

walking along the tracks.

Emergency Response and Community Services- The 3rd Street corridor runs directly 

through Springfield’s Medical District passing between the campuses of the City’s major 

hospitals. St. John’s Hospital and Memorial Medical Center provide emergency services 

for a multi county area, and provide the only Class One Trauma Center in the region. 

Stopped trains can delay emergency vehicles traveling to the hospitals, and delay 

physicians moving from one hospital to the other for both routine and emergency 

purposes. In addition, the City of Springfield’s planning goal is to enhance development 

opportunities in the Medical District, which would provide additional jobs and services 

to the surrounding communities. This development expansion is severely hindered 

because of the rail traffic on the UP rail line.

The 3rd Street corridor also passes through the midst of the downtown area. 

Development and redevelopment in Springfield’s downtown is currently restricted by 
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Springfield Rail Improvements Project 8

the 3rd Street corridor. Because of its location and use, the 3rd Street rail corridor creates a 

barrier to redevelopment moving west, and creates an additional hurdle for residential 

redevelopment throughout the downtown. 

Goals and Objectives

Based on the purpose and need described in Sections 3.2 and 3.3 for the Springfield Rail 

Improvements Project, IDOT and FRA established the following goals and objectives:

• Provide a route through Springfield that achieves the purpose of the Chicago to St. 

Louis High-Speed Rail Corridor Program as documented in the Tier 1 EIS. 

• Provide additional track capacity to accommodate future passenger train traffic. 

• Improve safety and reduce congestion by reducing the number of at-grade street 

crossings in the study area with a focus on those streets with the highest traffic 

volumes. 

• Improve livability and commercial activity by reducing train horn noise throughout 

the City and reducing the barrier effect of the rail lines with their growing rail traffic 

on neighborhoods, downtown and the Medical District. 

• Minimize negative rail operational impacts, impacts to existing development, 

lifecycle and capital costs, and impacts to social and economic resources. 

5.0 Tier 1 Alternatives in Springfield

Considered and Dismissed in the Draft EIS

The northern limit of the Springfield Project is the south right-of-way line of Sangamon 

Avenue. The southern Springfield Project limit is the north right-of-way line of Stanford 

Avenue. The Springfield Project includes an evaluation of vehicle congestion, public 

safety, and other problems along all three of the north-south rail lines through the City.

5.1 Alternatives Eliminated at Tier 1

Through the Tier 1 alternative screening process, IDOT identified five build alternatives

and one no build alternative in Springfield, alternatives 1 through 5. The Tier 1 EIS 

screening analysis (Volume I, Section 3) discusses the specific details of the alternatives 

and description of the alignments. 

• Alternative 5 would shift UP freight trains to Tenth Street and leave Amtrak 

passenger trains on Third Street. This alternative would also shift CN, I&M and 

KCS freight trains from the Nineteenth Street corridor to the Tenth Street corridor. 

Additional tracks would be provided along Tenth and Third Streets. Alternative 5 

was eliminated because it introduced the need for trains to shift from one track to 

another in the UP line north and south of the City and increased the length of the 

CN track. The shift is necessary because under this alternative passenger traffic 
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Springfield Rail Improvements Project 9

would be on the UP’s 3rd Street tracks, and UP freight traffic would be on 10th Street. 

UP freight trains on the UP west track north and south of the City would need to 

cross over the UP east track to use the new UP freight corridor on 10th Street. These 

trains could block and delay any UP freight or passenger trains on the UP east 

track. This alternative also had the highest capital costs and the largest area of new 

right-of-way required. This alternative was among the highest in terms of length of 

rail corridor through minority and low-income residential neighborhoods, which 

resulted in the highest impact to environmental justice (EJ) populations, and did not 

provide any notable advantages relative to the other alternatives. EJ populations are 

considered “populations of concern” due to Executive Order 12898 (Federal Actions 

to Address Environmental Justice in Minority Populations and Low-Income 

Populations) and implementing DOT Order (5610.2(a) (May 2, 2012) directing 

Federal agencies to identify and address disproportionate high and adverse human 

health or environmental effects on these groups .

• Alternative 4 would shift UP freight trains to Tenth Street and leave Amtrak 

passenger trains on Third Street. Additional tracks would be provided along Tenth 

and Third Streets. Alternative 4 also was eliminated because it introduces the need 

for trains to shift from one track to another in the UP line north and south of the 

City in the same manner as described above, as well as having high capital costs, 

and negative community impacts. This alternative did not provide any notable 

advantages relative to the other alternatives.

• Alternative 3 would shift UP freight trains and Amtrak passenger trains from Third 

Street to Tenth Street as well as CN, I&M and KCS freight trains from the 

Nineteenth Street corridor to the Tenth Street corridor. The Third Street corridor 

from near Ridgely Avenue to South of Iles Avenue would be abandoned as would 

the Nineteenth Street corridor from north of Clear Lake Avenue to near Stanford 

Avenue. Additional tracks would be provided along Tenth Street. Alternative 3 was

eliminated because of a lack of support from the CN, the high capital costs, and the 

large area of right-of-way that would need to be acquired. This alternative had the 

lowest probability, based on census data, for EJ and neighborhood impacts, but 

constructing Alternatives 1 or 2 (see detailed description below) with the grade 

separations on the CN corridor would minimize the potential for higher EJ impacts 

associated with these alternatives at a lower cost than constructing Alternative 3. 

Alternatives 1 and 2, and the No-Build were the retained alternatives and were

addressed at site-specific detail in the Tier 2 environmental evaluation, since they 

achieve the Springfield Project’s purpose and need while minimizing capital and present 

value costs and impacts to social resources. Section 5.2 summarizes the retained 

alternatives
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Springfield Rail Improvements Project 10

5.2 Alternatives Carried Forward at Tier 1

The following summary outlines the build alternatives that were retained for Tier 2 

analysis for the Springfield Rail Improvements Project from the Tier 1 EIS.

The Tier 2 analysis through Springfield analyzes alternatives for enhancing the capacity 

of one of the three corridors (Union Pacific (UP)) and accommodating and reducing the 

overall effects of the increasing high-speed passenger and freight train traffic along the 

three north-south rail corridors. 

5.2.1 No Build Alternative

The No-Build Alternative consists of maintaining the existing rail and street facilities 

after completion of the improvements approved by theFRA in the 2004 Record of 

Decision (ROD Improvements) and the 2011 FONSI (see the Tier 1 Final EIS Volume I, 

Section 3.2). No additional grade separations would be constructed. Quad gate (gates in 

all four quadrants of the crossing to minimize opportunities for drivers to drive around 

the gates when down) installation along 3rd Street as part of the ROD Improvements 

would allow for a quiet zone for the 3rd Street corridor (UP). The No-Build Alternative 

would have a substantial increase in freight rail traffic compared to the existing.

5.2.2 Alternative 1

Alternative 1 (Alternative C in Volume I of the Final EIS) leaves UP freight and 

passenger traffic at its existing location in the 3rd Street rail corridor. A second track 

would be added to increase train traffic capacity. New grade separations would be 

constructed at city streets. Alternative 1 is evaluated with three different gradeseparation configurations and grade crossing closures. These are referred to as 

Alternatives 1A, 1B and 1C:

• 1A – Double track UP on 3rd Street – grade separation at passenger station.

• 1B – Double track UP on 3rd Street – some grade separations on UP corridor only.

• 1C – Double track UP on 3rd Street – some grade separations on all.

Alternatives 1A, 1B, and 1C include closure of 3rd Street parallel to the UP tracks from 

Ash Street to Union Street. This consists of abandoning 3rd Street in areas where it is 

immediately adjacent to the track and the existing UP right-of-way width is less than 66 

feet. This would require that the street right-of-way and any property with access only 

from 3rd Street be purchased. 

The passenger station along 3rd Street for Alternatives 1A, 1B, and 1C would be at the 

site of the existing Amtrak Station and would extend to the block immediately to the 

north. The alternatives include a grade separation at Jefferson Street to provide the 

required 500 feet station platform length. Station parking (minimum 100 spaces) would 

be located immediately east of the station in the block between Jefferson and 

Washington streets. 
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Springfield Rail Improvements Project 11

5.2.3 Alternative 2

Alternative 2 (Alternative D in Volume I of the Final EIS) would shift UP freight and 

passenger traffic to the 10th Street rail corridor parallel to the existing Norfolk Southern 

(NS) corridor. Two new tracks would be constructed for the UP, and new grade 

separations would be constructed at city streets. Alternative 2 has two different grade 

separation configurations. These are referred to as Alternatives 2A and 2B. 

• 2A – Relocate UP to 10th – some grade separations on 10th Street and 19th Street 

(Exhibit 4-1).

• 2B – Relocate UP to 10th – grade separation or closure of all crossings on 10th Street 

south of North Grand Avenue, some grade separations on 19th Street.

Alternative 2B was developed at the request of the UP to evaluate the cost, impacts, and 

benefits of eliminating all at-grade crossings where the NS and UP would operate in 

adjacent, parallel corridors (North Grand Avenue to Stanford Avenue).

The passenger station along 10th Street for Alternatives 2A and 2B would be on the east

side of the rail corridor on the block between Adams and Washington streets. An 

overhead pedestrian crossing would provide access to the platforms. These alternatives 

include closing the Adams Street crossing to provide the required 500 feet station 

platform length. Station parking (minimum 100 spaces) would be located east of the 

station between Adams and Jefferson streets. 

5.3 Tier 2 Screening of Alternatives

The Springfield Project Tier 2 screening criteria were applied to the No-Build Alternative 

and to Alternatives 1A, 1B, 1C, 2A, and 2B. All of the alternatives, including the NoBuild Alternative, include a substantial increase in passenger and freight rail traffic, and 

this is reflected in the screening comparison. 

Table 4-1 lists the Springfield Rail Improvements Project screening objectives and the

corresponding criteria, as well as the units or methodology used to quantify or

characterize these criteria. Quantitative criteria were measured in appropriate units such

as number, time, or dollars, while qualitative criteria are encapsulated in a brief 

narrative description. Each of the alternatives that passed the Tier 1 screening (Volume 

I, Section 3.3.5) was evaluated in Volume II through the Tier 2 screening. Some of the 

Tier 2 screening criteria are the same as those used in the Tier 1 screening. 

As appropriate for a Tier 2 analysis, a more detailed analysis was conducted for the

Springfield Rail Improvements Project alternatives at Tier 2 because of a greater level of

available engineering detail and environmental information. 

Some of the screening criteria from Tier 1 were not included in Tier 2, because for those 

criteria additional information is not necessary or relevant at the Tier 2 level. 

Additionally, screening criteria were added to address the specific Springfield Project 
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Springfield Rail Improvements Project 12

needs. Differences in impacts and costs from Tier 1 to Tier 2 are a result of the more 

detailed analysis undertaken for Tier 2.

Table 4-1. Tier 2 Objectives and Screening Criteria

Note: Criteria not included in the Tier 1 Screening are in bold.

Objective Criteria and Measures

Safety Train/Vehicle Accidents at Grade Crossings (# of predicted 

accidents)

Congestion Vehicle Traffic delay (# of minutes of vehicle delay)

Livability and commercial activity • Predicted sound levels (Amount of time horns are blown 

per day (# of minutes)

• Reduce rail traffic through the Medical District and 

downtown (qualitative discussion)

Lifecycle and Capital Costs • Present value cost (dollars)

• Capital cost (dollars)

Operational issues Number of at-grade crossings

Impacts to existing development Right-of-way Impacts (acres of right-of-way required)

Impacts to social and economic 

resources

• Residential and commercial displacements (# of 

displacements)

• Parcels with changes in access (# of parcels)

• Neighborhood severances and public services (qualitative 

discussion)
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Springfield Rail Improvements Project 13

Exhibit 4-1. Alternative 2A
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Springfield Rail Improvements Project 14

5.4 Alternatives Carried Forward for Detailed Tier 2 Study 

Alternatives 2A and 2B were the reasonable alternatives brought forward and analyzed 

in Volume II of the EIS since they achieve the Springfield Project’s purpose and need 

while minimizing capital and lifecycle costs and impacts to social resources. These build 

alternatives best meet the Springfield Project’s purpose and need by minimizing atgrade street crossings and the predicted car/train crashes. They also are effective in 

reducing vehicle delays. Normal train horn blowing would be eliminated by these build 

alternatives and they have the lowest annual and lifecycle costs. Both of these build 

alternatives eliminate rail traffic from downtown, the Medical District and the 

neighborhoods along 3rd Street. In addition, these build alternatives reduce the barrier 

effect of the 10th Street and 19th Street corridors by building new grade separations in 

both rail corridors. 

5.5 Environmentally Preferable Alternative

CEQ regulations implementing NEPA require that a ROD specify the alternative or 

alternatives considered to be environmentally preferable. “Environmentally 

preferable” is defined as “the alternative that will promote the national 

environmental policy as expressed in the NEPA, Section 101.” Ordinarily this means 

the alternative that causes the least damage to the biological and physical 

environment; it also means the alternative that best protects, preserves, and 

enhances historic, cultural, and natural resources.

IDOT, in coordination with the FRA, USEPA and USFWS, identified the 

environmentally preferable alternative for the Springfield Rail Improvement Project as 

Alternative 2A.

In determining an environmentally preferable alternative, IDOT considered all action 

alternatives as well as the No Action Alternative. IDOT weighed and balanced the 

physical environmental effects associated with the action alternatives as well as those 

associated with the No Action Alternative. IDOT determined that the adverse 

environmental effects associated with the Selected Alternative were less substantial 

than the consequences associated with the No Action Alternative in terms of air quality, 

energy, and traffic, and thus identified Alternative 2A as environmentally preferable.

5.6 Selected Alternative

FRA has selected Alternative 2A as the Selected Alternative for the Springfield Rail 

Improvements Project after consideration of public and agency comments on the Draft 

and Final EISs. Alternative 2A consists of relocating the existing UP freight and 

passenger rail corridor to a new location parallel to the NS tracks on 10th Street. The 

improvement consists of constructing two UP tracks at 20-foot centers in a 75-foot right-
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Springfield Rail Improvements Project 15

of-way. The NS right-of-way would be 65 feet wide with one main track and the 

provision for a future track at 15 feet from the main track. The existing underpasses at 

Cook Street, South Grand Avenue, 5th Street, and 6th Street would remain and be 

modified as necessary to accommodate the new track.

New grade separations would be constructed at nine locations. The existing rail 

crossings would be closed at 10th Street and five other locations. Streets would be closed 

at 11 locations. Improvements would be made to the remaining at-grade crossings to 

allow implementation of quiet zones on the CN, UP, and NS rail corridors in the

Springfield Project area. 

A proposed new rail passenger station would be located adjacent to the 10th Street rail 

corridor north of Adams Street. The cost and impacts for the station are included with 

the overall Springfield Project. The existing NS rail yard would be purchased. Costs are 

included in overall Springfield Project costs. 

Rail traffic would be eliminated from the existing UP corridor from north of Ridgely 

Avenue to south of Iles Avenue. Portions of Ridgely Avenue, Factory Street, Iles 

Avenue, and Burton Drive would be realigned to accommodate the track improvements. 

Alternative 2A is the Selected Alternative for the Springfield Rail Improvements Project

for the following reasons:

• Alternative 2A would have lower capital cost than Alternative 2B.

• Alternative 2B would have lower delays, crash rates, and lifecycles costs, but this 

results primarily from constructing new grade separations at Monroe and 

Washington streets and closing Capitol Avenue and Enos Street. The grade 

separations both have a benefit/cost ratio much less than 1.0. The grade separations 

and street closures create undesirable access and adverse travel issues as discussed 

in Section 5.2.3.1 and 5.2.3.2 of this ROD. 

• Alternative 2B would require more right-of-way acquisition, and would result in 

more commercial displacements and more parcels with a change in access. 

• Alternative 2B would change the access to the Great Western Railroad Depot due to 

the construction of an underpass grade separation along Monroe Street. This 

presents no change from its historic setting and vibration studies have assessed no 

structural impact to the property from the alternatives and no noise impacts.

• There are no other anticipated substantial differences between the impacts 

generated from Alternatives 2A and 2B for environmental justice concerns, Section 

4(f) properties, noise, or vibrations impacts. 

Additional Considerations:

While Alternative 2A is the Selected Alternatives for the reasons described in this section 

5.6, it involves significant and costly improvements in moving service off of the existing 

Amtrak route. As described in section 2.2 of FRA’s ROD for the Tier 1: Chicago to St. 
Record of Decision for the

Springfield Rail Improvements Project 16

Louis High-Speed Rail Corridor Program, IDOT has developed an implementation plan 

which calls for the Chicago to St. Louis High-Speed Rail Corridor Program to be 

implemented in incremental steps due to the Program size and scope. Therefore, 

resources will need to be prioritized and costs and benefits weighed in deciding which 

improvements will be advanced first. Accordingly, in advancing the overall Program,

FRA’s selection of Alternative 2A would not preclude limited interim investments on the 

existing Amtrak route (particularly safety-related improvements) that might be 

appropriate prior to the implementation of the major improvements contemplated 

through the Springfield Project Selected Alternative. Environmental analyses for such 

investments might need to be made, as appropriate. This is consistent with the FRA’s 

approach to other sections of the Corridor Program where the selected alternative moves 

away from the existing Amtrak route but the switch to the new route may not be 

achievable in the short term. 

6.0 Summary of Potential Effects and 

Measures to Avoid and Minimize Harm

IDOT conducted a comprehensive review and analysis of the potential impacts of the 

Selected Alternative in Volume II of the Final EIS, building upon the impact analysis of 

the Draft EIS. This analysis included an assessment of the impacts to both the natural

and human environment. Consistent with 40 CFR 1505.2(c), all practicable means to 

avoid or minimize environmental harm from the Springfield Project were identified 

and mitigation measures were described, which are formal commitments associated 

with the Springfield Project approval. In designing, constructing, and operating the 

proposed railroad improvement, IDOT is required to adhere to all mitigation measures. 

IDOT will prepare a comprehensive mitigation and monitoring plan for the Springfield

Project in close coordination with FRA and the Cooperating Agencies. IDOT will submit 

the completed plan for FRA review and approval prior to implementation. In 

developing the comprehensive mitigation monitoring plan, IDOT will coordinate with 

relevant agencies on mitigation issues within their specific area of expertise. 

The environmental impacts for Alternative 2A were assessed in compliance with the 

FRA’s Procedures for Considering Environmental Impacts, NEPA, CEQ’s regulations, 

resource agency input, and public comments. Field surveys were conducted for 

resources that have a potential for impacts. Surveys were conducted for ambient 

conditions for noise and vibration modeling, historic structures and archaeological sites, 

endangered and threatened species, and wetlands. Newsletters, a Springfield Rail 

Improvements Project website, telephone call-in numbers and numerous community 

presentations were provided for interested neighborhood groups throughout the 

Springfield Project area to solicit comments and feedback from the public.

Table 5-1 summarizes the environmental impacts of Alternative 2A.
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Springfield Rail Improvements Project 17

Table 5-1. Environmental Impact Summary of Alternative 2A 

Impact Category Alternative 2A

Right-of-Way Acquisition (Acres) 42.0

Displacements

 Residential 117

 Commercial 53

Access Changes 28

Farmland Conversion (Acres) 0

Cultural Resources

 National Register Listed (or Eligible) Sites 0

 Known Archaeological Sites 0

Natural Resources

 Threatened/Endangered Species (Number of Species) 0

 Natural Areas (Number) 0

 Native Vegetation (Acres) 0

Affected Lakes and Streams 0

100-yr. Floodplains Crossings 0

Wetlands (Acres) 0

Parks (Number) 0

Special Waste Sites (Number within one block)

 CERCLIS(1) 2

 LUST(2) 20

(1)

Comprehensive Environmental Response, Compensation and Liability Information System. 

(2)

Leaking Underground Storage Tank.

(3) Current access to the Great Western Railroad Depot will be relocated to the west along the same block. Therefore, 

there will be no permanent impact to this structure. 

Alternative 2A is shown in Appendix A, Exhibit A-1.

6.1 Land Use Impacts

The relocation of UPRR from the 3rd Street corridor to the 10th Street corridor with 

Alternative 2A would allow for the expansion of businesses and the Medical District 

along 3rd Street. Other City improvement opportunities also would be possible along 

the abandoned 3rd Street corridor, such as a city-wide pedestrian/bike path or parkway 

for additional green space. This enhancement to the community could provide the 
Record of Decision for the

Springfield Rail Improvements Project 18

opportunity for businesses to cater to needs of additional visitors to the downtown area 

and the President Lincoln historical sites. For example, restaurants and other outdoor 

food vendors could become established for bicyclists touring the downtown attractions 

or passing through the City. In addition, a multimodal facility, consisting of a train 

station and transit hub for buses and taxi service, has been planned by the City of 

Springfield for the 10th Street corridor. This facility is intended to provide services and 

jobs to Springfield’s east side. This complex is proposed to be constructed on about four 

city blocks and may contain restaurants, shops, office space, a daycare facility, meeting 

rooms, and parking. This facility conforms to the City’s Downtown Redevelopment 

Plan and Springfield’s 2030 Comprehensive Plan.

6.2 Socio-economics and Environmental Justice Community 

Impacts

6.2.1 Relocation

Table 5-1 depicts the number of residential and commercial displacements for the 

Selected Alternative. The displacement numbers can be referenced in Exhibit A-1 and 

Appendix A.

Approximately 117 residences and 53 commercial businesses may be relocated as a 

result of the construction of Alternative 2A. These relocations are a result of 

approximately 42 acres of right-of-way that is required for the additional railroad tracks 

necessary for the Springfield Project. Springfield has sufficient comparable housing and 

commercial space available to accommodate those relocations. Right-of-way purchases 

would be conducted in compliance with the Uniform Relocation Assistance and Real 

Property Acquisition Policies Act of 1970 (Uniform Act) (42 USC 4601 et seq.), as 

amended, and the U.S. Department of Transportation implementing regulations. IDOT 

would implement the provisions of the State of Illinois Relocation Assistance Plan in 

accordance with the Uniform Act. 

6.2.2 Environmental Justice and Title VI

Each of the build alternatives would affect some Environmental Justice populations, as 

defined by CEQ based on the most recent census data. Railroad traffic currently exists 

within each of the current rail corridors within the City of Springfield. However, the 

build alternatives do not disproportionately impact EJ populations, as both the 3rd Street 

(UP) and the 10th Street (NS) rail lines pass through more non-minority than minority 

communities. 

Under the Selected Alternative, 23 minority residences and five minority-owned 

businesses would likely need to be relocated; however, these displacements are not 

borne disproportionately by minorities. Minority displacements constitute 

approximately 20 percent of the total residential displacements, and minority-owned 
Record of Decision for the

Springfield Rail Improvements Project 19

businesses likely to be displaced constitute approximately 10 percent of the total 

business displacements. 

Positive impacts to Springfield, the communities of concern and neighborhoods would

result from the elimination of 32 at-grade crossings, improvements to remaining at 

grade crossings, and the elimination of train horn blowing. Benefits from these actions 

center on increased safety, reduced delays and general noise reduction city-wide. New 

grade separations would increase safety not only for vehicular traffic but also 

pedestrians traveling across these railroad crossing locations. Safety would also increase 

for vehicular and pedestrian traffic from proposed improvements to at-grade crossings 

remaining along the 10th and 19th Street Corridors. The proposed at-grade crossing 

treatments would support elimination of blaring noise from train horns traveling 

through Springfield’s communities. Therefore, because the benefits to communities of 

concern in the Springfield Rail Improvements Project area were determined to outweigh 

the adverse effects to these communities, no disproportionately high and adverse 

human health and environmental effects are anticipated to result from implementation 

of the Springfield Project.

6.2.3 Public Services/Facilities

Public services and facilities that would be displaced by Alternative 2A are the Illinois 

EPA, the Salvation Army, and Planned Parenthood. The Illinois EPA headquarters is at 

1021 North Grand Avenue East. The proposed Springfield Rail Improvements Project 

would bisect the headquarters building, and displace the north entrance, office space, 

and parking north and south of the building, all of which is leased by the Illinois EPA. 

Adequate replacement space is available nearby. Office space could be replaced 

through the addition of floors, or construction of additional buildings or add-ons to the 

north of the existing headquarters. Acquiring property to the north may also be possible 

for replacing lost parking space.

Alternative 2A would have a net positive effect on access and response times for 

emergency vehicles serving the Springfield communities once construction is complete. 

Response time for emergency vehicles would improve as a result of improved roadway 

system linkage with elimination of the UP on the 3rd Street corridor, construction of eight 

grade separations, crossing closures along the 10th and 19th street corridors, and 

consolidation of UP and NS railroad traffic into one corridor. Police, fire, and emergency 

response times may be temporarily affected during construction. Coordination with 

public response agencies serving the Springfield Rail Improvements Project area would 

continue during construction to avoid and minimize disruptions to emergency response.

6.2.3.1 Road Closures

Road closures along the Selected Alternative are primarily in industrial areas where the 

business would be displaced and moved to a new location or access would not result in 

adverse travel. Adverse travel is the additional length of roadway a motorist must travel 
Record of Decision for the

Springfield Rail Improvements Project 20

as a result of a closed road. Adverse travel would be limited to no more than one block, 

except for the area between Reservoir Street and Enterprise Street. This adverse travel 

would only be borne by local residential visits. Adverse travel resulting from road 

closures would not be a factor for residents going shopping or for emergency services or 

access to public facilities since the primary east-west arterial is North Grand Avenue one 

block north of Reservoir Street. 

6.2.4 Community Impacts

Alternative 2A would consolidate rail traffic to fewer corridors, which would eliminate 

neighborhood barriers, promote community cohesion and reduce the length of rail lines 

that go through residential areas by 3.7 miles. 

Positive impacts to the Springfield communities and neighborhoods would result from 

the elimination of 32 at-grade crossings, improvements to remaining at-grade crossings, 

and the elimination of train horn blowing. Benefits from these actions center on 

increased safety and general noise reduction city-wide. New grade separations would 

increase safety not only for vehicular traffic but also pedestrians traveling across these 

railroad crossing locations. Safety would also increase for vehicular and pedestrian 

traffic from proposed improvements to at-grade crossings remaining along the 10th and 

19th Street corridors, due to fencing along the railroad right-of-way and four quadrant 

gates at crossings to prohibit vehicles from entering during train crossings. The 

proposed at-grade crossing treatments would support establishment of a train horn

quite zone. 

Views of trains and new rail lines would be considered a minor adverse visual impact. 

IDOT would determine potential ways to help reduce minor impacts, such as planting 

vegetation screens or providing aesthetically pleasing features as part of the design.

6.2.5 Economic Benefits and Impacts

The expenditure of funds for transportation infrastructure has both direct and indirect 

economic impacts to the City of Springfield. The economic impacts of Alternative 2A 

would be dispersed through the City of Springfield and Sangamon County. 

The direct impacts include jobs created both in production of materials and equipment 

used in the Springfield Project and in actual on-site construction activities. Construction 

of the Springfield Rail Improvements Project would involve demolition of existing 

structures, widening and preparing the road bed, placement of new track, installation of 

signal and safety devices, and construction of grade separations. Firms that produce the 

signal and safety devices, steel rails, and rolling stock for Alternative 2A would create 

additional jobs. 

Wages individuals receive would then recycle throughout the economy as new workers 

buy/rent houses, furniture, groceries, and other merchandise. These expenditures, in 

turn, create new jobs. While much of this benefit would be within the City of 
Record of Decision for the

Springfield Rail Improvements Project 21

Springfield, the total geographic distribution impact would depend upon the location of 

firms supplying the labor and materials needed on the Springfield Project.

The predicted increase in train traffic by 2020 from about 35 trains per day to 72 trains 

per day through the City of Springfield would create some new railroad jobs. The 

precise location of economic impacts would depend on which companies receive 

contracts to conduct the construction activity. 

Alternative 2A would require the purchase of about 42 acres of additional right-of-way. 

The increased benefits of increased passenger rail traffic through the City and the 

redevelopment potential of the abandoned 3rd Street railroad corridor is expected to 

counter the loss of property tax revenue as a result of the conversion of property to 

transportation use.

6.3 Cultural Resources

Section 106 of the National Historic Preservation Act of 1966 (NHPA) requires Federal 

agencies to take into account the effects of their undertakings on historic properties and 

afford the Advisory Council on Historic Preservation (ACHP) of reasonable opportunity 

to comment. The historic preservation review process mandated by Section 106 is 

outlined in regulations issued by ACHP. 

The Area of Potential Effect (APE) is defined as two blocks on either side of the existing 

10th Street tracks, or about 1,500 feet. This distance encompasses any grade separations 

that might be constructed, including those on 19th Street. 

Three sites within the Area of Potential Effect (APE) are currently listed on the National 

Register individually. One of these—the Abraham Lincoln Home—is also a National 

Historic Landmark. The other two sites include the Lincoln Colored Home and the 

Mine Rescue Station. FRA has determined the Selected Alternative would have No Effect

on these properties due to their distance from the proposed action since they are all over 

400 feet from the railroad tracks, except for the Mine Rescue Station. 

The Mine Rescue Station at 609 East Princeton Avenue is listed on the National Register 

of Historic Places and is about 75 feet from the existing railroad right-of-way, but this 

presents no change from its historic setting. The Selected Alternative would not present

any vibration impacts to the structural integrity of the Mine Rescue Station; therefore, 

the effects assessment on this property is No Effect.

The Illinois State Historic Preservation Office concurred with the No Effect determination

in a letter received on November 1, 2012 and is attached in Appendix A. A final 

determination will be made upon the completion of archeological investigations. 
Record of Decision for the

Springfield Rail Improvements Project 22

6.3.1 Archaeological Resources

Alternative 2A would avoid the Lincoln Home National Historic District; therefore, the 

Springfield Project would not impact any known archaeological sites. New right-of-way 

would be subjected to a Phase I archaeological survey to identify potentially significant 

archaeological resources. Potentially significant archaeological resources could be found 

associated with the former coal-mining communities of Starne and Iles Junction, the rail 

yard and shops of the Great Western Depot/Wabash Railroad, as well as pre-Civil War 

domestic neighborhoods of downtown Springfield including the Springfield Furniture 

Factory. The evaluation of potential impacts to unknown archaeological resources 

within the Springfield Rail Improvements Project area would require continued 

coordination with the Illinois Historic Preservation Agency (IHPA) under the 

requirements of Section 106 of the Historic Preservation Act of 1966. Further Section 106 

coordination will continue with the IHPA as a commitment of this ROD. 

6.4 Air Quality

6.4.1 Conformity

All areas of Sangamon County affected by the Springfield Project are classified as 

attainment areas for the six criteria air pollutants which include carbon monoxide (CO), 

lead (Pb), nitrogen dioxide (NO2), particulate matter (PM10 and PM2.5), ozone (O3), and 

sulfur dioxide (SO2). Accordingly, a conformity determination of the Springfield 

Project's capacity to cause or exacerbate exceedances of the National Ambient Air 

Quality Standards (NAAQS) is not required.

6.4.2 Construction Impacts

Potential impacts to local air quality during construction of the Selected Alternative are 

possible. Potential impacts include fugitive dust emissions, direct emissions from 

construction equipment and truck exhausts, increased emissions and dust from 

construction vehicles on the streets, and emissions from re-routed vehicular traffic. 

Fugitive dust emissions vary with the nature of the operations and the dust control 

methods employed. Fugitive dust generated during construction generally consists of 

large-sized particulates that settle on nearby buildings and vehicles. People near a 

construction site would be exposed to higher than average amounts of inhalable 

particulates. However, the impacts associated with construction activities are normally 

negligible, local, and temporary.

IDOT’s Standard Specifications for Road and Bridge Construction include provisions on 

dust control. Under these provisions, dust, and airborne dirt generated by construction 

activities would be handled through dust-control procedures or a specific dust-control 

plan, when warranted. The contractor and IDOT would meet to review the nature and 

extent of dust-generating activities and would cooperatively develop specific types of 

control techniques appropriate to the specific situation. Techniques that may warrant 

consideration include measures such as minimizing track-out of soil onto nearby 
Record of Decision for the

Springfield Rail Improvements Project 23

publicly traveled roads, reducing speed on unpaved roads, covering haul vehicles, and 

applying chemical dust suppressants or water to exposed surfaces, particularly those on 

which construction vehicles travel. With the application of appropriate measures to limit 

dust emissions during construction, the Springfield Project would not cause any notable, 

short-term particulate matter air quality impact. 

6.5 Noise/Vibration

In accordance with Federal Transit Administration (FTA) and FRA guidelines, a noise 

and vibration impact assessment was conducted for the Selected Alternative. 

6.5.1 Noise Impact Assessment

For Alternative 2A, future noise levels do not include horn noise because IDOT and the 

City of Springfield would establish a quiet zone. The grade separations and grade 

crossing improvements included in Alternative 2A allow quiet zones to be established. 

No noise impacts would occur at institutional receivers with Alternative 2A. 

With Alternative 2A there would be nine severe noise impacts and nine moderate noise 

impacts at residential locations along the Springfield Project. These noise impacts are 

limited to one area as shown in Exhibit A-1I (see Appendix A). The noise impacts are 

located in the southern portion of the study area near the intersection of the NS tracks 

and the existing UP tracks. 

The noise impacts would result from the projected additional UP and NS trains in the 

10th Street corridor in an area where streets crossing the tracks are grade separated, so 

existing trains do not sound their horns. Thus, the increase in the number of trains in the 

10th Street corridor would be the primary factor in the change in noise levels. 

Overall, noise impacts would be reduced throughout the rail corridor of the 

recommended alternatives because of the proposed quiet zone. The Selected Alternative 

would eliminate train horns from being sounded throughout Springfield on all three rail 

corridors. This would have a positive effect on residents who live and work along the 

10th Street corridor. City-wide residents also would benefit from the proposed action—

even with an increase in the overall number of trains. 

6.5.2 Vibrations Impact Assessment

The results of the vibration impact assessment for the Selected Alternative indicates that 

there would be 129 impacts at residential (Category 2) locations and two impacts at 

institutional (Category 3) locations. The vibration impacts would be on the 10th Street 

corridor, the new UP tracks between Phillips Street and Ridgely Avenue, and on the 

new double-track portion of the UP north of Ridgely Avenue. The vibration impacts 

along the 10th Street corridor would result from the new tracks and the increase in train 

traffic along the corridor. The impacts between Phillips Street and Ridgely Avenue 
Record of Decision for the

Springfield Rail Improvements Project 24

would result from the introduction of the new UP tracks in this location. The vibration 

impacts on the existing UP corridor north of Ridgely Avenue would result from the 

changes in the tracks and the presence of a number of crossovers. Vibration impacts also 

would occur at the Caritas Hall Association and the Great Western Railroad Depot. The 

Great Western Railroad Depot currently experiences vibration impacts with existing rail 

traffic, and the proposed Springfield Project would reduce vibration levels from the NoBuild condition. All vibration impacts are limited to human annoyance, and the 

projected vibration levels are below the criteria for potential damage to any building

structures.

No vibration impacts would occur on the section of the NS track north of Phillips Street, 

or on the CN or I&M tracks because there would be no change in the vibration levels in 

those locations with Alternative 2A. Future operations would be on the existing tracks 

with no change in speed. Therefore, there would not be any change in the ground-borne 

vibration levels at sensitive receptors adjacent to these portions of Alternative 2A.

6.5.3 Train Noise and Vibration Mitigation Measures

The Selected Alternative 2A would reduce existing noise and vibration levels along 3rd 

Street and avoid vibration impacts at sensitive receptors including the historic Dana 

Thomas House, and Memorial Medical Center, Springfield Clinic, and the proposed 

Medical District expansion between Memorial Medical Center and St. John’s Hospital. 

Quiet zones are proposed to be established throughout the Springfield Rail 

Improvements Project area and IDOT will work with the City of Springfield to assure 

that appropriate quiet zones are established. Train horns sounded near at-grade 

crossings are the major noise source in the Springfield Project area. Quiet zones would 

eliminate this major noise source from freight and passenger train activities throughout 

the Springfield Project area. For the 18 moderate and severe noise impacts still 

remaining in the Selected Alternative, payments for noise easements will be required 

since other noise mitigation forms are too costly and impracticable unless IDOT 

proposes and FRA concurs with alternative arrangements to mitigate impacts. 

There are several approaches to reduce ground-borne vibration from train operations

outlined in Section 5.8.4.2 of Volume II. IDOT in coordination with UP, shall conduct a 

detail vibration assessment to identify specific mitigation measures reducing vibration 

from train operations during further development of the Springfield Rail Improvements 

Project. A vibration mitigation plan for the Springfield Project, including specific 

measures, agreed to by IDOT and UP is required prior to any FRA commitment to 

implement the Springfield Project. 

6.5.4 Construction Noise Mitigation Measures

Temporary noise during construction has the potential of being intrusive to residents 

near the construction sites. Construction activities would be carried out in compliance 
Record of Decision for the

Springfield Rail Improvements Project 25

with all applicable local noise regulations. In addition, specific residential property line 

noise limits would be developed during final design and included in the construction 

specifications for the Springfield Project, and noise monitoring would be performed 

during construction to verify compliance with the limits. This approach allows the 

contractor flexibility to meet the noise limits in the most efficient and cost-effective 

manner. Noise control measures that would be applied as needed to meet the noise 

limits include the following:

• Avoiding nighttime construction in residential neighborhoods.

• Using specially quieted equipment with enclosed engines and/or high-performance 

mufflers.

• Locating stationary construction equipment as far as possible from noise-sensitive 

sites.

• Constructing noise barriers, such as temporary walls or piles of excavated material, 

between noisy activities and noise-sensitive receivers.

• Re-routing construction-related truck traffic along roadways that would cause the 

least disturbance to residents.

6.6 Floodplains

Based on the floodplain mapping maintained by the Federal Emergency Management 

Agency, no work would be performed below the 100-year flood elevation, and as a 

result the Springfield Project would not encroach upon any base floodplain. Therefore, 

there would be no impacts to floodplains, and no floodplain map revisions would be 

required. Alternative 2A would not result in any significant adverse impact on natural 

and beneficial floodplain values; any significant change in flood risks or damage; or 

significant potential for interruption or termination of emergency service or emergency 

evacuation routes.

6.7 Wetlands

Based on the wetlands reconnaissance survey and the National Wetland Inventory 

mapping, Alternative 2A did not affect any wetlands regulated under the Clean Water 

Act of 1972. 

6.8 Special Waste

The USEPA listing of potential, suspected, and known hazardous waste or hazardous 

substances sites in the Springfield Project area (i.e., the Comprehensive Environmental 

Response Compensation and Liability Information System of CERCLIS list) was 

reviewed on February 10, 2012, to ascertain whether the proposed Springfield Rail 

Improvements Project would involve any listed sites. Based on this review, the proposed 

improvements associated with the Springfield Project would require right-of-way from 
Record of Decision for the

Springfield Rail Improvements Project 26

one listed CERCLIS site, the Springfield Iron Company at the northeast corner of the 

intersection of Ridgely Avenue and Factory Street (see Exhibit A-1B in Appendix A).

Another CERCLIS site, Nutronics, Inc., located at 1703 Peoria Road, would be within 

one block of the proposed improvements. 

Rail construction may encounter petroleum-contaminated soils at several locations 

within the Springfield Project area. Construction activities may require coordination 

with the responsible parties of the CERCLIS and LUST sites and other reported sites 

concerning the disposal of excavated materials (see Appendix A, Exhibits A-1A to A-1J

for LUST site locations). These sites are not anticipated to present significant 

impairments to rail improvements associated with the construction of Alternative 2A. A 

Preliminary Environmental Site Assessment (PESA) for special waste is recommended 

prior to construction to determine risks and liabilities prior to land acquisition and 

construction activities.

6.9 Section 4(f)/6(f) and Parklands

The proposed action is adjacent to three Section 4(f) properties. These properties include 

11th and Black Park, Iles Park, and Lanphier Park (see Exhibits A-1 and A-2 in Appendix 

A). There are also three historic properties adjacent to the proposed rail right-of-way. 

These properties also include the Lincoln Home, Lincoln Colored Home, Springfield 

Furniture Factory, Great Western Railroad Depot, and the Mine Rescue Station. No 

right-of-way will be purchased from any of these properties and there is no noise, 

vibration or aesthetic impacts resulting in a constructive use; therefore, these properties 

do no result in any Section 4(f) uses. 

6.10 Irreversible and Irretrievable Commitments of 

Resources

Irreversible resource commitments represent a loss of future options. It applies 

primarily to the use of nonrenewable resources, such as cultural resources or fossil fuels, 

and to factors that are renewable only over long time spans. An irretrievable 

commitment of resources represents opportunities that are foregone for the period of the 

proposed action. It relates to the use of renewable resources, such as timber or human 

effort, as well as other utilization opportunities that are foregone in favor of the 

proposed action. 

Implementation of the proposed action would result in the irreversible and irretrievable 

commitment of natural and man-made resources to the construction and operation of 

the proposed action. The primary commitment of resources would come from the 

construction phase, but there would be some commitment of resources for operation of 

the rail line. In general, the commitment of resources would be common for all of the 

build alternatives. 
Record of Decision for the

Springfield Rail Improvements Project 27

Alternative 2A would result in the irreversible and irretrievable commitment of 

construction materials, such as steel, concrete, ballast rock, and wood. Though largely 

irretrievable, these resources are not in short supply and many of the materials could be 

recycled for other projects when they no longer meet the design needs of the passenger 

or freight rail service. In addition, energy resources (fuel) and financial resources would 

be committed to the Springfield Project for construction, operation, and maintenance. 

Some land for additional right-of-way would also be irretrievably and irreversibly 

committed for conversion to the railroad. 

Human effort would be irretrievably committed during the planning, construction, and 

operation phases of the Springfield Project. The commitment of time and available labor 

in the construction of the proposed action would also represent an irretrievable 

commitment of resources. 

6.11 Mitigation 

Table 5-2 summarizes adopted mitigation actions as they apply to each resource.

Table 5-2. Mitigation Actions

Resource

Impacted Mitigation

Land Use IDOT would implement the provisions of the Uniform Relocation 

Assistance and Real Property Acquisition Policies Act of 1970 

(Uniform Act) (42 USC 4601 et seq.), as amended, and the U.S. 

Department of Transportation implementing regulations. IDOT 

would implement the provisions of the State of Illinois Relocation 

Assistance Plan in accordance with the Uniform Act. 

Socio-economics and 

Environmental Justice 

Community Impacts

Any adverse impacts of the proposed Springfield Project would not be 

disproportionately borne by minority or low-income populations 

yielding no need for mitigation action. Benefits from the Springfield 

Project center on increased safety, reduced delays and general noise 

reduction city-wide. Police, fire, and emergency response times may 

be temporarily affected during construction. IDOT coordination with 

public response agencies serving the Springfield Project area would 

continue during construction to avoid and minimize disruptions to 

emergency response. Safety would also increase for vehicular and 

pedestrian traffic from proposed improvements to at-grade crossings. 
Record of Decision for the

Springfield Rail Improvements Project 28

Resource

Impacted Mitigation

Cultural Resources The Section 106 process would continue with an evaluation of 

potential impacts to unknown archaeological resources within the 

Springfield Project area and continued coordination with the Illinois 

Historic Preservation Agency (IHPA) under the requirements of 

Section 106 of the Historic Preservation Act of 1966. Further Section 

106 coordination will continue with the IHPA as a commitment of this 

ROD.

Air 

Quality/Construction 

Noise Mitigation 

Measures

IDOT’s Standard Specification on dust control would be implemented 

during construction to limit dust emissions during construction. Noise 

control measures that would be applied by IDOT and UP as needed to 

meet the noise limits include the following: Avoiding nighttime 

construction in residential neighborhoods; using specially quieted 

equipment with enclosed engines and/or high-performance mufflers; 

locating stationary construction equipment as far as possible from 

noise-sensitive sites; constructing noise barriers, such as temporary 

walls or piles of excavated material, between noisy activities and 

noise-sensitive receivers; re-routing construction-related truck traffic 

along roadways that would cause the least disturbance to residents.

Noise and 

Vibration

Quiet zones would be created throughout the City on all rail corridors 

traversing the City. IDOT will work with the City to assure that these 

quiet zones are established. Noise easements are recommended to be 

purchased for moderate and severe receptors unless IDOT proposes 

and FRA concurs with alternative arrangements to mitigate impacts. 

IDOT in coordination with UP, shall conduct a detail vibration 

assessment and to identify specific mitigation measures to reduce 

vibration from train operations during further development of the 

Springfield Rail Improvements Project. A vibration mitigation plan 

for the Springfield Project, including specific measures, agreed to by 

IDOT and UP is required prior to any FRA commitment to implement 

the Springfield Project. 

Water 

Quality/

Resources

Best Management Practices would be utilized by IDOT and UP to 

protect water quality. Almost all runoff from construction would be 

diverted directly into the City’s combined sewer system during and 

after construction and treated by the Springfield Metro Sanitary 

District.

Visual and Aesthetic 

Quality

Views of trains and new rail lines would be considered a minor 

adverse visual impact. IDOT would determine potential ways to help 

reduce minor impacts, such as planting vegetation screens or 

providing aesthetically pleasing features as part of the design. 
Record of Decision for the

Springfield Rail Improvements Project 29

Resource

Impacted Mitigation

Special Waste Construction activities associated with construction of Alternative 2A 

may require additional coordination with responsible parties for 

CERCLIS and LUST, and other reported sites concerning the disposal 

of excavated materials A Preliminary Environmental Site Assessment 

(PESA) for special waste is recommended prior to construction to 

 

 

 

 

Section 4(f)/6(f) and 

Parklands

No right-of-way will be purchased from any of the Section 4(f)/6(f) 

and Parklands properties and there is no noise, vibration or aesthetic 

impacts resulting in a constructive use; therefore, these properties do 

no result in any Section 4(f) uses.

7.0 Summary of Comments on the Springfield 

Rail Improvements Project

During the 30 day waiting period following the publication of the Final EIS, FRA 

received letters from the Illinois State Historic Preservation Office, Illinois and US EPA 

outlining future coordination and permitting requirements. The letters are attached in 

Appendix A:

• The Illinois State Historic Preservation Office concurrence with the FRA’s No Effect 

determination was received on November 1, 2012. 

• IL EPA letter was received on November 16, 2012; the agency has no objections to 

the Project, however, a stormwater permit will be required if one or more acres is 

disturbed during future construction activities, and hazardous materials if 

encountered, will need to be properly disposed of or recycled. 

• US EPA letter was received on December 10, 2012; the agency appreciates 

acknowledgement of their comments on the Draft EIS and commends the Final EIS 

for improvements to the following sections; Purpose and Need; Alternatives; 

Environmental Impacts; Threatened and Endangered Species; Migratory Birds; 

Environmental Justice; Noise Receptors; Water Crossings; and Cumulative Impacts. 

The US EPA also commends the Preferred Alternative selection for the Springfield 

Project, and the agency looks forward to future coordination with the FRA and 

IDOT.

8.0 Corrections to the Final Springfield Rail 

Improvements Project

There are no changes to the Final EIS. 
Record of Decision for the

Springfield Rail Improvements Project 30

9.0 Decision

9.1 Basis for Decision

IDOT proposes to implement high-speed passenger rail service between Chicago and St. 

Louis. The purpose of the Chicago to St. Louis High-Speed Rail Corridor Program is to 

offer a safe, reliable alternative to automobile and air travel between Chicago and St. 

Louis using proven rail technology. Currently, the overwhelming majority of travelers 

travel by automobile on Interstate 55, contributing to substantial safety and congestion 

concerns on that roadway and in adjacent communities. Projected travel demand on I-55 

is expected to continue to increase commensurate with projected population growth in 

Illinois. Implementation of that program will help address these needs.

The Selected Alternative identified in this ROD is composed of passenger and freight 

rail relocation and grade separations in the City of Springfield, and is a component of 

the Chicago to St. Louis high-speed passenger rail program. Section 4.3 of this ROD 

articulates in detail the considerations and factors balanced by FRA in arriving at this 

decision. 

FRA, in accordance with NEPA, CEQ’s NEPA implementing regulations (40 CFR Part 

1500), and FRA’s Procedures for Considering Environmental Impacts, finds that the 

requirements of NEPA have been satisfied for the Tier 2 analysis of the Springfield Rail 

Improvements Project.

The environmental record for the Tier 2 Springfield Rail Improvements Project includes 

the Draft EIS (June 2012), the Final EIS (December 2012), and this ROD, which includes 

comments from the circulation of the Final EIS. These documents represent the detailed 

analysis and findings required by NEPA on:

• The environmental impacts of the proposed Springfield Project

• Alternatives to the proposed Springfield Project

• Irreversible and irretrievable impacts on the environment which may be involved in 

the proposed Springfield Project should it be implemented.

On the basis of the evaluation of social, economic, and environmental impacts contained 

in the Draft EIS and Final EIS, as well as the written and oral comments offered by the 

public and by other agencies, FRA determines that:

• Adequate opportunity was afforded for the presentation of views by all parties with 

a significant economic, social, or environmental interest, and fair consideration was 

given to the preservation and enhancement of the environment and to the interest 

of the communities in which the proposed Springfield Rail Improvements Project is 

located; and
Record of Decision for the

Springfield Rail Improvements Project 31

• All reasonable steps were taken to minimize adverse environmental effects of the 

proposed Springfield Project, and where adverse environmental effects remain, 

they have been fully reported in the Draft EIS and Final EIS.

The extensive opportunities provided for public and other stakeholder involvement in 

planning and decision-making are described in the Final EIS. The reasonable steps to 

minimize adverse environmental effects are described in the Final EIS and are detailed 

as Springfield Project commitments in this ROD.

9.2 Section 4(f)

Section 4(f) of the Department of Transportation Act of 1966 declares that “it is the 

policy of the United States Government that special effort should be made to preserve 

the natural beauty of the countryside and public park and recreation land, wildlife and 

waterfowl refuges, and historic sites.” Section 4(f) states that the Secretary of 

Transportation “may approve a transportation program or project . . . requiring the use 

of publicly owned land of a public park, recreation area, or wildlife and waterfowl 

refuge of national, state, or local significance, or land of an historic site of national, state, 

or local significance (as determined by the federal, state, or local officials having 

jurisdiction over the park, area, refuge, or site) only if:

• there is no prudent and feasible avoidance alternative to the use of the land 

from the Section 4(f) property; and

• the program or project includes all possible planning to minimize harm to the 

Section 4(f) property resulting from the use.”

In the Final EIS, IDOT evaluated Section 4(f) in compliance with all requirements of 

Section 4(f) as well as FRA’s Procedures for Considering Environmental Impacts.

The Selected Springfield Project Alternative avoids any use of Section 4(f) properties. 

Based upon this evaluation, FRA concludes that the Springfield Project is consistent with 

the requirements of Section 4(f).

9.3 Wetlands Finding

Presidential Executive Order 11990, “Protection of wetlands,” directs federal agencies to 

avoid to the extent possible the long- and short-term adverse impacts associated with 

the destruction or modification of wetlands and to avoid direct or indirect support of 

new construction in wetlands wherever there is a practicable alternative.

Construction of the Springfield Rail Improvements Project would not traverse, modify, 

or destroy any wetlands. Based upon these findings, FRA determines that the 

Springfield Project complies with requirements of Executive Order 11990.
Record of Decision for the

Springfield Rail Improvements Project 32

9.4 Floodplains and Floodways Finding

DOT Order 5620.2 implements Executive Order 11988, Floodplain Management and 

Protection. These orders state that FRA may not approve an alternative involving a 

significant encroachment unless FRA can make a finding that the proposed 

encroachment is the only practicable alternative. The major purposes of Executive Order 

11988 are to avoid Federal support for floodplain development; to prevent uneconomic, 

hazardous, or incompatible use of floodplains; to restore and preserve the natural and 

beneficial floodplain values; and to be consistent with the standards and criteria of the 

National Floodplain Insurance Program.

FRA concludes that the Springfield Project will not result in any substantial adverse 

impact on natural and beneficial values of the floodplains, will not result in a substantial 

change in flood risks or damage, and will not have a substantial potential for 

interruption or termination of emergency service and evacuation routes. Based upon 

these findings, FRA determines that the Springfield Project complies with requirements 

of Executive Order 11988.

9.5 Environmental Justice Finding

Executive Order 12898, Federal Actions to Address Environmental Justice in Minority 

Populations and Low-Income Populations, requires that each Federal Agency shall make 

achieving environmental justice part of its mission by identifying and addressing, as 

appropriate, disproportionately high and adverse human health or environmental 

effects of its programs, policies, and activities on minority populations and low-income 

populations. The Final Department of Transportation (DOT) Order to Address 

Environmental Justice in Minority Populations (DOT Order 5610.2(a) (May 2, 2012)) 

imposes similar obligations on DOT operating administrations to promote the principles 

of Executive Order 12898 and incorporate such principles in all programs, policies, and 

activities including the NEPA process.

The majority of the Springfield Project would be within or adjacent to an existing 

transportation corridor therefore the benefits to communities of concern in the 

Springfield Project area were determined to outweigh the adverse effects to these 

communities, no disproportionately high and adverse human health and environmental 

effects are anticipated to result from implementation of the Springfield Project. 

Positive impacts to Springfield, the communities of concern and neighborhoods would 

result from the elimination of 32 at-grade crossings, improvements to remaining at 

grade crossings, and the elimination of train horn blowing. Benefits from these actions 

center on increased safety, reduced delays and general noise reduction city-wide. New 

grade separations would increase safety not only for vehicular traffic but also 

pedestrians traveling across these railroad crossing locations. Safety would also increase 

for vehicular and pedestrian traffic from proposed improvements to at-grade crossings 
Record of Decision for the

Springfield Rail Improvements Project 33

remaining along the 10th and 19th Street Corridors. The proposed at-grade crossing 

treatments would support elimination of blaring noise from train horns traveling 

through Springfield’s communities. Based upon these findings, FRA determines that the 

Springfield Project complies with requirements of Executive Order 12898. 

Record of Decision for the

Springfield Rail Improvements Program APPENDIX A

U.S. Department of Transportation

Federal Railroad Administration

APPENDIX A

Record of Decision for the

Springfield Rail Improvements Project

December 2012