Downtown Portland Waterfront Activation Strategy (2014)

WATERMARKPLANNING

DOWNTOWN PORTLAND WATERFRONT ACTIVATION STRATEGY FINAL REPORT | JUNE 2014

ACKNOWLEDGEMENTS Watermark Planning Rachel Cotton, Operations and Technology Manager Janai Kessi, Lead Analyst Eve Nilenders, Lead Editor Lauren Russell, Communications Lead Andrew Yaden, Project Manager Jeremy Young, Design Lead City of Portland Bureau of Planning and Sustainability Debbie Bischoff, Senior Planner, River/Environmental Planning Team Mindy Brooks, Environmental Tech II, River/Environmental Planning Team Sallie Edmunds, Supervising Planner, River/Environmental Planning Team Kathryn Hartinger, Associate Planner, Central City Team Karl Lisle, West Quadrant Project Manager, Central City Team Mark Raggett, Senior Planner, Urban Design Portland Parks and Recreation Bryan Aptekar Cary Coker Terri Davis Brett Horner Elizabeth Kennedy-Wong Allan Schmidt City of Portland Bureau of Transportation Mauricio Leclerc, Senior Transportation Planner Portland State University Dr. Sy Adler Gil Kelley Dr. Marisa Zapata Event Support Ashley Blincow Amanda Davidowitz Malachi Graham Steven Nilenders Kate Washington Janice Yaden

Stakeholders and Technical Advisors Lisa Abuaf, Portland Development Commission Raihana Ansary, Portland Business Alliance Bernie Bottomly, Portland Business Alliance Jeff Curtis, Portland Rose Festival Sal DiGrande, Rivers West Small Craft Center Todd Edwards, OlÊ Latte Cafe Steve Faust, Cogan Owens Cogan Lisa Frisch, Downtown Retail Council Julie Garver, Innovative Housing, Inc. Kirstin Greene, Cogan Owens Cogan Nick Hardigg, Portland Parks Foundation Cori Jacobs, Downtown Retail Council Andrew Jansky, Flowing Solutions Rich Jarvis, Portland Rose Festival Tamara Kennedy-Hill, Travel Portland Michael Kimmel, Louisville Waterfront Development Corporation Gerik Kransky, Bicycle Transportation Alliance Carl Larson, Bicycle Transportation Alliance Will Levenson, Human Access Project Nolan Lienhart, ZGF Architects Lynn Longfellow, Oregon Nikkei Endowment Jonathan Maus, BikePortland Carol Mayer-Reed, Mayer/Reed Mollie O’Donnell, Columbus Recreation and Parks Department Ron Paul, James Beard Public Market Gary Piercy, Navy League Ken Pirie, Walker Macy Amy Platt, Oregon Historical Society and Oregon History Museum Mike Pullen, Multnomah County Communications Office Jean Quinsey, Oregon State Marine Board John Russell, Russell Development Wayne Schuyler, Oregon State Marine Board Susan Spitzer, Oregon Maritime Museum Suzanne Stahl, Portland Commission on Disability Sarah Stevenson, Innovative Housing, Inc. Amy Taylor, Columbus Downtown Development Corporation Kerry Tymchuk, Oregon Historical Society and Oregon History Museum Paul Verhoeven, Portland Saturday Market Howard Weiner, Old Town Chinatown Community Association Felicia Williams, Downtown Neighborhood Association Travis Williams, Willamette Riverkeeper Dan Yates, Portland Spirit Watermark Planning would like to thank members of the general public who participated in this project and provided feedback. Their input and support is vital to activating the waterfront.

CONTENTS Executive Summary.....................................................................7

7. Recommendations for Activating the Waterfront.......53

1. Introduction.......................................................................11

Introduction.............................................................................54 How to Use this Section...............................................................55

Context Map..............................................................................13

7.1. Placemaking.......................................................................57 7.2. Access & Circulation...........................................................65

2. Waterfront History............................................................15

7.3. Commercial & Recreational Boating......................................73 7.4. Economic Development........................................................79

3. 40 Years of Planning Portland’s “Front Yard”................19

7.5. Natural Environment............................................................87 7.6. Events...............................................................................93

Defining Development Projects & Guiding Vision Documents.............20

7.7. Recommendations in Place: Hawthorne Bowl & Steel Bridge......97

Relevant Planning Goals, 1972-Present.........................................27

8. Moving Forward: A Strategic Framework.....................101 4. Existing Conditions............................................................29 9. Outcomes & Assessment................................................107 5.

Community Engagement...................................................35 10. A Call to Action.................................................................119

6. 21st Century U.S. Riverfronts..........................................43 Appendices...............................................................................127 Boston, MA...............................................................................44 Columbus, OH...........................................................................46

A. Community Engagement......................................................128

Louisville, KY.............................................................................48

B. Other Alternatives Considered..............................................133

Pittsburgh, PA............................................................................50

C. Funding for Placemaking.....................................................134 D. Sources..............................................................................135

EXECUTIVE SUMMARY

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EXECUTIVE SUMMARY

Waterfront Park is a beloved public space, but needs an update.

D

espite longstanding ambitions and multiple planning efforts, Portland’s goal of embracing and enhancing the Willamette River as the heart of the Central City has only been partially fulfilled. Similar proposals for the downtown waterfront have repeatedly appeared in official planning documents over the past four decades, and yet the majority remain unimplemented. Many of those recommendations remain relevant today and continue to represent viable strategies for activating the downtown waterfront.

This plan represents a closer look at some key recommendations—both old and new—for activating the downtown waterfront. It also includes strategies for moving forward and measuring progress.

Existing Conditions Waterfront Park is a beloved but underutilized public space that needs an update.

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Portland’s downtown waterfront lacks vibrancy, largely as the result of difficult or unclear connections to the city’s downtown and surrounding neighborhoods, as well as an absence of commercial activities and attractions in and around the park.

There are often conflicts between modes, particularly pedestrians and cyclists, along the park’s very popular and limited pathways. In addition, there are few opportunities for commercial and recreational boating in Waterfront Park and limited opportunities for park visitors to engage directly with the river.

Furthermore, a better balance between natural and human elements in the park—including native vegetation, geese, shallow water salmon habitat, and people—is desired. Finally, public use of the park, a regional amenity, is restricted during summer months due to the dedication of a large swath of the park for limited access events. Overall, the implementation of goals targeted at addressing many of these issues over recent years has been hampered by City fiscal constraints.

What the Public Said During the four-month community engagement process, the public told Watermark Planning the following: • The park does not live up to its full potential as a treasured Portland asset; • There is a strong but unmet desire to gain greater access to the Willamette River via the park for swimming, boating and watersports; • The boating community wants better access to the park and downtown from the river;

Members of the public providing input at one of several community events.

• Certain additional amenities (in particular, food and seating) must be present for the park become a more multipurpose and vibrant space year-round; • The experience of walking and cycling both within and to the park should be enhanced; and • There is a frustration with large events’ use of the park space, as it restricts free public access.

Recommendations by Theme Watermark Planning has developed a set of recommendations to address both public feedback and goals that have been echoed through decades of waterfront planning.

Downtown Portland Waterfront Activation Strategy | June 2014

EXECUTIVE SUMMARY These recommendations arise from three guiding principles: 1. Make the riverfront a vibrant place yearround.

2. Better connect the river to the downtown.

3. Promote and celebrate the riverfront as a public space and resource.

Economic Development Goals

Benefits of a Non-Profit to the City of Portland

• Expand commercial activities along Naito Parkway • Expand commercial activities in the park • Develop the waterfront and adjacent blocks as a commercial destination

• The creation of a long-term waterfront vision and a phased implementation plan can buffer against shifting political priorities.

• An organization dedicated to the waterfront would prioritize obtaining funding for projects as a cornerstone of its mission.

• This organization would provide additional capacity to manage the funding of everyday maintenance and capital projects on Portland’s Central City waterfront.

• Portland Parks and Recreation (PPR) would be free to focus on public space deficiencies in other areas of the city.

• Additional activities arising from the organization’s management of the park could provide an additional revenue stream for PPR.

Natural Environment Goals

Watermark Planning’s recommendations have been organized under the following themes: placemaking, access & circulation, commercial & recreational boating, economic development, natural environment, and events.

• Enhance in-park and river habitat • Engage the park visitors through educational displays and interactive science • Reduce the impact of migratory and resident geese on the use and access of the park

Placemaking Goals

Events Goal

• Highlight Portland’s uniqueness through arts and culture on the waterfront • Help people to understand and appreciate the waterfront’s historical and geographical context • Make the park a regular and year-round destination where people want to spend time

• Manage event scope to balance the needs of park users and event attendees

Access & Circulation Goals

Given the history of consistent goals and non-implemented visions for Portland’s waterfront, a special focus has been placed on overcoming barriers to implementation within this plan. For that reason, Watermark Planning calls for the establishment of a private non-profit entity to plan, coordinate, implement, and manage waterfront projects within the Central Reach of the Willamette River. Such an organization would be a keeper of and champion for the city’s waterfront vision over time. This recommendation stems from Watermark Planning’s study of successful and exemplary waterfront development projects across the United States.

• Improve park visitors’ ability to access the water • Improve connections to the park • Improve circulation within the park

Commercial & Recreational Boating Goals • Utilize the river as a transportation option • Enhance river recreation

Executive Summary

Moving Forward: A Strategic Framework

Outcomes and Assessment To determine the plan’s effectiveness, and to establish a metric of success over time, Watermark Planning recommends assessing outcomes through measurable data. BPS or a private non-profit entity should oversee a regular assessment of benchmarks to measure progress in implementing the plan’s recommendations.

Watermark Planning offers three recommendations to jumpstart the process of activating Waterfront Park today: • The City of Portland should create a non-profit entity to manage waterfront projects; • Tactical urbanism should be employed to get lowcost projects off the ground and bring changes to the park as quickly as possible; • Portland should undertake a catalytic project to transform its downtown waterfront.

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1 INTRODUCTION

Realizing a 21st Century Urban Waterfront in Portland’s Central City

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INTRODUCTION Why this plan? Why Now?

How will this plan be used?

In the 1970s, Portland was ahead of its time when it removed Harbor Drive and replaced it with Governor Tom McCall Waterfront Park. In the years since, the city has fallen behind in terms of planning and building a successful urban riverfront. While other cities have redeveloped their downtown waterfronts to spur economic development and create dynamic spaces that celebrate unique cultural, natural, and historical elements within the region, Portland continues to lag behind in this regard.

This document is an activation strategy for revitalizing the Central City’s westside waterfront.

It harnesses ideas from prior City plans and current City planning efforts while also drawing upon public input and international best practices to highlight opportunities for activating Portland’s waterfront. This plan will inform the Central City 2035 Plan and the Central Reach portion of The River Plan and will also be used to inform a future update to the 2003 Waterfront Park Master Plan.

Due to the park’s disconnect from the river and downtown as well as a lack of amenities and commercial attractions, Waterfront Park has not realized its full potential as a 21st century urban waterfront. With Central City 2035 and The River Plan/Central Reach planning processes underway, now is the ideal time to prioritize turning Portland’s central city waterfront into the true regional amenity that has been envisioned repeatedly over the past four decades.

Who created this plan?

Geographic Extent

Watermark Planning is a team of six graduate students in the Master of Urban and Regional Planning (MURP) program at Portland State University’s Nohad A. Toulan School of Urban Studies and Planning. In fulfillment of the degree capstone, Planning Workshop, the team has partnered with the City of Portland Bureau of Planning and Sustainability and other agencies, including Portland Parks and Recreation, to develop a Downtown Portland Waterfront Activation Strategy.

Watermark Planning focused specifically on the west bank of the Willamette River, from the Hawthorne Bowl in the south to the Steel Bridge in the north, encompassing the whole of Governor Tom McCall Waterfront Park and beyond into adjacent portions of downtown and Old Town/ Chinatown (from Naito Parkway to 3rd Avenue to the west).

WATERMARKPLANNING

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The planning team considered a broader area of influence beyond the immediate study area that includes downtown and Old Town/Chinatown and extends westward from Waterfront Park to the Park Blocks, northward to Centennial Mills/Pearl District, and southward to the South Waterfront. The area of influence also included the eastern bank of the Willamette, from the Oregon Museum of Science & Industry in the south to the Rose Quarter in the north.

Downtown Portland Waterfront Activation Strategy | June 2014

INTRODUCTION

Downtown Portland Waterfront Activation Strategy: Area of Focus

Introduction

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2 WATERFRONT HISTORY

Portland’s downtown waterfront has an intriguing and multilayered story that is poorly represented within Waterfront Park. Connecting park visitors with the historic and cultural context of the river would build a sense of place and promote the park as a unique destination for residents and visitors alike. Four key stages of waterfront history that should be highlighted and prominently displayed in the park are described here.

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WATERFRONT HISTORY Pre-settlement and Early City-building The Portland area was home to a number of traditional villages, most notably of the Multnomah bands of the Chinook linguistic stock but also included the Kalapuya, Kathlamet, Clackamas, Molalla and more. The waterfront around what today is Portland’s downtown was a swampy backwater used by local tribes to harvest the wappato, a root serving as a staple food. Population estimates from the mid-18th century put the Multnomah tribe at around 3600 people, mostly populating the area around the confluence of the Willamette and Columbia Rivers. The Oregon Donation Land Act of 1850 and following legislation removed local tribes from the area, opening it to the land claims of white settlers. The 1910 Portland census put the entire Chinook population at a mere 315.

Bird’s-eye view of the westside waterfront and the old city, circa 1850s

Early settlers used the Portland area, known then as “the Clearing,” as a stopping ground and trading area between the settlers around Oregon City and Fort Vancouver. Asa Lovejoy and William Overton laid the first major claim to the area, encompassing 640 acres, that includes what today is Tom McCall Waterfront Park. The city, despite its potential, was at the time very much a frontier town, given the derisive name “Stumptown” by outsiders (and rivals in nearby Oregon City and Milwaukie) for the numerous tree stumps left in the ground in the middle of Front and First streets.

Working Waterfront Portland grew to be the Pacific Northwest’s major port during the 19th century, largely supporting the needs of the California Gold Rush and exporting wheat, lumber and fish to the rapidly growing city of San Francisco. Plank roads directly connected the downtown wharves to the rich resource lands to the west and south.

Ships headed for southern and international destinations pulled up to buildings located right on the river to load their goods. City streets ran directly to the water’s edge and residents would stroll down to the riverfront to watch waterfront activity.

Westside wharves on the downtown waterfront (facing northwest), circa 1920

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Following the success of the 1905 Lewis and Clark fair, the first Rose Festival was held in 1907 to celebrate the civic pride of a quickly growing city. The riverfront remained a center of commerce and activity, however, with thousands of ships calling on the city annually, shipping lumber and wheat to markets in Europe, Asia and the eastern U.S. During this period, the city began engaging in early forms of planning and in 1929 completed the seawall and an associated sewer line that remain today.

Downtown Portland Waterfront Activation Strategy | June 2014

WATERFRONT HISTORY The City of Steel: Cars and Ships Come to Portland At one point in the 1930s, proud city residents claimed that Portland had more cars per capita than New York or Chicago, and the city actively promoted itself as a car-friendly city. Shipbuilding soon followed the access to cheap hydropower and numerous steel manufacturers.

When the US joined the Second World War, the city drew in thousands of workers to build ships in one of the great industrial war efforts in the nation. To meet the need of linking downtown with the shipyards in the north, the city began construction of the Harbor Drive expressway. The downtown waterfront became an important area for merchant ships staging supplies and cargo and for completing repairs of war-damaged ships.

Harbor Drive, or Route 99W (facing north), circa 1940s. The Oregon Journal Building (formerly the Public Market) and the old Morrison Bridge are in the background.

The Waterfront as Open Space

The vast open space of the soon-to-be Waterfront Park (facing south), following the removal of Harbor Drive, circa 1976.

Waterfront History

Governor Tom McCall Waterfront Park and the now defunct Ankeny Dock, circa 2000.

In one of the great riverfront stories of the 20th century, Harbor Drive was removed in 1974 and replaced with Tom McCall Waterfront Park. The downtown riverfront has seen only incremental and small-scale additions since par completion in 1978.

Today, the park is much as it was at its opening in 1978 and remains a great attraction for locals and visitors alike. During this period, a number of planning efforts had targeted the waterfront for updates.

However, most visions remain unmet and the park remains an open grassy area much as originally designed. The 1972 called for “several large grassy areas shall be left primarily as open grass “meadows” to provide space for unspecified Park uses and future flexibility.”

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3 40 YEARS OF PLANNING PORTLAND’S “FRONT YARD” Despite longstanding ambitions and multiple planning efforts, Portland’s goal of embracing and enhancing the Willamette River as the heart of the Central City has only been partially fulfilled. Lacking implementation, many proposals for the downtown waterfront have repeatedly appeared in official planning documents over the past four decades. Many of those recommendations remain relevant today and continue to represent viable strategies for activating the downtown waterfront.

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DOWNTOWN WATERFRONT’S DEFINING DEVELOPMENT PROJECTS & GUIDING VISION DOCUMENTS Westside Wharves Demolished; Seawall Construction Begins Morrison Bridge (#3) completed Steel Bridge Completed

1910

Harbor Drive (99W) opens

1840s-1920s

1912

1948

1930 1928

1943

1966 1958

John Yeon’s Visitor Information Center constructed Westside wharves and warehouses

Hawthorne Bridge completed

Seawall completed Also shown here is the newlyconstructed Burnside Bridge, completed in 1926.

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Harbor Drive becomes obsolete after the opening of the new Interstate 5 freeway

Downtown Portland Waterfront Activation Strategy | June 2014

Harbor Drive removed

River Renaissance Strategy adopted

Central City Plan adopted Downtown Plan adopted

Japanese-American Historical Plaza completed Waterfront Park dedicated

Bill Naito Legacy Plaza completed

1975 1968

1972 1974

1988 1978

2003 2006

1990

Salmon Street Springs completed

Downtown Waterfront Park Final Report adopted

40 Years of Planning Portland’s “Front Yard”

2004

2012

2009

Waterfront Park Master Plan adopted Central City 2035 Concept Plan adopted The River Plan: River Concept adopted

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40 YEARS OF PLANNING PORTLAND’S “FRONT YARD” This section summarizes over forty years of planning history in Portland as it relates directly to Tom McCall Waterfront Park and pertains to the following plans: 1972 1975 1988 2003 2004 2006 2012

-

Portland Downtown Plan Downtown Waterfront Park Final Report Central City Plan Waterfront Park Master Plan River Renaissance Strategy The River Plan: River Concept Central City 2035 Concept Plan

“T

he riverfront is one of the few places which provides the city dweller with the opportunity to get in touch with the natural environment, and more particularly with the special qualities of a body of water. It provides the opportunity for play as well as work, relaxation as well as stimulation, nature as well as artifice; the opportunity to create for the people of Portland a combination of unique activities through which city life can be enhanced.”

-Portland Downtown Plan, 1972

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A list of proposals mentioned consistently within these plans is included at the end of this section.

1972

Portland Downtown Plan The Portland Downtown Plan, adopted by City Council in 1972, was a groundbreaking comprehensive plan for the area of the Central City bound by I-5 and I-405, including the westside waterfront. Goals developed for the downtown waterfront and included in this plan were heavily influenced by input from a citizen advisory committee as well as several planning studies conducted by Portland Planning Commission staff in the late 1960s, including the 1967 Downtown Waterfront Staff Study. The Downtown Plan set the primary framework and a series of guiding principles for the 1975 Downtown Waterfront Park Final Report, which ultimately created the public open space known today as Governor Tom McCall Waterfront Park.

1975

Downtown Waterfront Park Final Report The Downtown Waterfront Park Final Report, adopted by City Council in August 1975, was the culmination of a formal planning process that began in 1971, immediately following the decision to remove Harbor Drive (Highway 99) from the west bank of the Willamette River in order to create a grand, new open space in the heart of the Central City. The Final Report focused on a set of policy recommendations for the implementation of a

“T

he removal of the last major obstacles, the Old Journal Building and Harbor Drive, has turned an elusive possibility into an exciting reality. What the people of Portland have anticipated for over sixty years and ten unexecuted plans can now be accomplished, almost overnight – a major Waterfront Park in Downtown Portland.”

-Downtown Waterfront Park Final Report, 1975

Downtown Portland Waterfront Activation Strategy | June 2014

40 YEARS OF PLANNING PORTLAND’S “FRONT YARD” three-year plan for the newly created Waterfront Park. These policy recommendations were rooted in a series of planning guidelines outlined in the 1972 Portland Downtown Plan, as well as in the goals and objectives of the 1974 Waterfront Renewal Plan. With a few major exceptions, particularly those focused on pedestrian improvements and traffic calming along Naito Parkway and commercial development at the Morrison Bridgehead, many of the recommendations made in the Downtown Waterfront Park Final Report, especially those related to park design, have been implemented over the last 35 years. This visionary plan was responsible, more or less, for shaping the open space known as Governor Tom McCall Waterfront Park as it exists today.

significance of the Willamette River in the Central City; namely, the river was repeatedly referred to as a central point of connection for Portland residents and visitors alike. The plan aspired to enhance the river as a “focal point” for activities, recreational or commercial, that “knit” the city together.

1988

Central City Plan The Central City Plan, officially adopted by the Portland City Council in 1988, built upon the 1972 Portland Downtown Plan and the 1980 update to that plan. The 1988 Central City planning process incorporated input from more than 10,000 Portland residents, making it the most extensive public involvement process of any planning effort in the region during the 1980s. The plan provided a 20year guide for growth and investment in Portland’s Central City and identifies the waterfront as a significant asset to be leveraged in this process.

Although the plan was concerned with a broader area than just the area in and around Tom McCall Waterfront Park, it highlighted the Willamette River as a central feature of Portland. Within this plan a theme emerged in the language used to describe the

40 Years of Planning Portland’s “Front Yard”

2003

plan is quite thorough and incorporates a great deal of public input. However, while it includes sections devoted to implementation, funding, and phasing, to date it has largely failed to be implemented.

One element of the plan that remains relevant today is feedback from a 2001 focus group with the public that identified what was working and what needed improvement in the park. The group noted a need for more linkages to the downtown, increased river access, and a need for more historic and environmental features. Problems cited included limited pedestrian crossings, poor directional signage, and poor connections to the bridges for pedestrians and bikers, all of which remain issues today. Although the Waterfront Park Master Plan recommended a phased schedule of implementation and included cost estimates for each section of the park as well as a discussion of potential funding sources—presumably in an attempt to think creatively and also strategically about financing implementation—an overall lack of funding seems to be the root cause of failed implementation of the plan’s many viable recommendations.

Waterfront Park Master Plan

Key goals from the plan

The Waterfront Park Master Plan was created as an update to the original Downtown Waterfront Park Final Report master plan from 1975. Its purpose is to provide a clear direction for the future of the park through a series of policies, development concepts, specific projects, and actions. In addition to outlining a number of physical improvements, it includes policy and program recommendations. The

Master Plan Guiding Principles • Integrate and connect the park with its surrounding city center location.

• Accentuate the riverfront location of the park.

• Create an environment for diverse activity and expanded recreational opportunities.

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40 YEARS OF PLANNING PORTLAND’S “FRONT YARD” “T

he ultimate goals of the Master Plan are simple—to bring greater enrichment to those who live, work, and seek recreation in downtown Portland, Oregon; to bring people together; to generate more life in the park; and to strengthen its connection to the downtown.

These ideas were a part of the 1975 plan and they remain powerful and compelling notions. Much has changed in the city since then however, and a fresh approach to achieving these goals has to be defined. The new concept maintains the park—as it was stated in the original plan—as a “prime recreation resource particularly for those who live, work or shop in downtown.”

The Master Plan reiterates another goal from the previous plan to provide a “strong formal framework for all present and future elements…urban in character, harmonious with the order and form of the downtown, and capable of handling large community activities… .”

-Waterfront Park Master Plan, 2003

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Waterfront Park Master Plan (2003): Major Development Concepts

Long-Term Vision

• Develop two major activity centers in the park, between the Hawthorne Bridge and Salmon Street Springs and at Ankeny Plaza • Redevelop and improve the large lawn area north of the Morrison Bridge as the Meadow.

• Develop an all-weather Waterfront Plaza in the vicinity of Yamhill and Morrison Streets, bordered by the new curved pathway.

• Expand opportunities to experience the park by developing the Promenade as a curved pathway that meanders through the park.

• Increase opportunities for the general public to view and have closer access to the river.

• Integrate the Esplanade with downtown pedestrian corridors and other regional greenway trails.

• Create stronger pedestrian and bicycle connections across and along the river, with increased capacity to meet growing contemporary and future needs.

• Develop a long-term strategy to coordinate programs and events, oversee implementation of the Master Plan, and provide overall management of the park’s operations.

• Encourage small-scale activities to provide variety and life in the park.

• Provide a variety of ways for visitors to learn about the park, the river, and the site’s history.

• Integrate public art throughout the park using a variety of media and cultural offerings.

• Integrate permanent public art works into the overall design of the park.

• Use native plants extensively, though not exclusively, to enhance the educational value of the park

In consideration of the unique character of the park, establish a permanent entity to work with Portland Parks and Recreation to develop a management plan, create and apply event guidelines, and ensure that the goals of the Master Plan are, and continue to be, fulfilled.

“A

persistent problem for the informal park user has been the proportion of summer months during which much of the park is fenced off for the installation, dismantling, and recovery from major events. It is an objective of the plan to shorten those periods of interruption of park use and limit the area affected.”

-Waterfront Park Master Plan, 2003

Downtown Portland Waterfront Activation Strategy | June 2014

40 YEARS OF PLANNING PORTLAND’S “FRONT YARD” 2004

River Renaissance Strategy The River Renaissance Strategy was approved by the Portland City Council in 2004, preceded by the River Renaissance Vision from 2001. More than 1,000 Portland residents contributed their ideas and insights to the development of the Vision, which is intended to be a guiding document for river planning over the next 50 years. The strategy focuses on five main river-related topics: a clean and healthy river; a prosperous and working harbor; Portland’s “front yard”; vibrant waterfront districts and neighborhoods; and partnerships, leadership, and education. Within each of these five topics, the strategy outlines guiding policies, metrics of success, and examples of current or potential actions recommended to achieve the desired outcomes. A major strength of the River Renaissance Strategy is its incorporation of real world examples of successful projects, coupled with a description of mechanisms, both financial and regulatory, for implementing suggested action items.

2006

The River Plan: River Concept The purpose of the River Concept plan was to provide policy guidance for the update of the 1987 Willamette Greenway Plan through the development of a new river plan. The River Concept was part of the River Renaissance initiative that began in 2001. The River Plan, which came out of the River Concept, serves to identify projects to include on its Capital Improvement Program list as well as those

40 Years of Planning Portland’s “Front Yard”

that would be best implemented through publicprivate partnerships. The Central Reach portion of the Willamette River was envisioned as the region’s gathering place within the River Concept.

2012

Central City 2035 Concept Plan The Central City 2035 Concept Plan forms Phase II of the Central City 2035 Plan (CC2035), for which the planning process is currently in progress, and is scheduled to be completed in 2015. CC2035 builds upon the 1972 Portland Downtown Plan and the 1988 Central City Plan and operates within the framework of the recently adopted Portland Plan.

CC2035 establishes high-level policy guidance for development in the city center and relates the center’s development to the four quadrants in the Central City. Central City 2035 spans both sides of the Willamette River, including Portland’s downtown and adjacent neighborhoods on the west (West Quadrant), the Central Eastside Industrial District (Southeast Quadrant), and the Lloyd District and Lower Albina (N/NE Quadrant). Plans for the quadrants form Phase III of CC2035 (2010-present).

Phase IV of the CC2035 will consist of refining the concept plan and will focus on implementation.

goals include emphasizing the river’s status as the “defining feature” of the Central City, improving the built environment bordering it, capitalizing upon river vistas, and improving east-west connections.

Other urban design goals include bridgehead redevelopment, improving street diversity, open spaces that serve a wide variety of uses and users, and harnessing the architectural and historic value of buildings and places, and establishing transitions between neighborhoods.

Of particular relevance to Watermark Planning’s Downtown Portland Waterfront Activation Strategy planning process are CC2035 concept plan goals related to the Willamette River, specifically increasing its role in the city, improving its health, and increasing public access to and along the river. Similarly, the concept plan’s urban design

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40 YEARS OF PLANNING PORTLAND’S “FRONT YARD” In Summary: 1972-2012

The following list and the matrix on page 27 contain goals common to the aforementioned planning documents from the last four decades: • Expanded retail core oriented toward the waterfront • Commercial-recreational activities and commercial uses (shops, restaurants, entertainment) along the waterfront and in the park • Study/consider potential for active uses under bridge ramps • Tourist, civic, and cultural functions such as an aquarium, marine museum, amphitheater, botanical garden, or amusement-recreation center in Waterfront Park • A restaurant/shop complex located at the Morrison Bridgehead • Convert old Visitor Information Center to an appropriate use such as a restaurant or community center • More housing near the waterfront • Elimination of traffic barriers between the river and adjoining districts • Increased pedestrian access, and access for those with mobility impairments, along the waterfront and to/from adjacent districts and/or bridges • Attractive pedestrian spaces achieved through establishing design standards for seating, plazas, and walkways • Traffic-free pedestrian and bike connections to Old Town/Skidmore Fountain, Retail Core, and

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• • •

• • •

• • • • • • • •

other districts adjacent to the waterfront Specially designed paved crosswalks with appropriate signalization on Front Avenue [Naito Parkway] to minimize it as a pedestrian barrier Close sections of Front Avenue [Naito Parkway] to provide traffic-free access to the waterfront Front Avenue [Naito Parkway] shall become a tree-lined boulevard, with tree patterns extended west toward the Downtown on major pedestrian streets Increased pedestrian-bicycle circulation along the waterfront Separated bicycle path or lane where space permits, which connects with existing and proposed bicycle paths Placemaking elements (landscaping, lighting, connections) which emphasize visual and physical ties between the waterfront and the downtown Expanded access to the river Places for people to observe river activities and scenic views (e.g. floating platform) Activities on the water such as boat tours, pleasure boating, and “barge concerts” with supporting dock facilities Establish facilities that access the water’s surface (e.g. temporary boat tie-ups, swimming areas, a light craft center, and moorages) Improved links/access between east and west (e.g. shuttle transit between waterfront and the retail core) Provide north-south transit along the waterfront by “trolley” or other “fun vehicles” River taxi or ferry system with stops at public attractions and existing piers More public restrooms at the waterfront

• Enhance fish and wildlife habitat along the river • Enhance the river as a “focal point” for activities, recreational or commercial, that “knit” the city together • Create a nonprofit corporation to ensure uninterrupted progress of plans as political and community leaders change Watermark Planning believes that these recommendations continue to represent viable strategies for activating the downtown waterfront.

From a planning perspective, the degree to which these recommendations have recurred consistently in plans related to the waterfront over the past forty years—and yet remain unfulfilled—deserves a closer look. To this end, a later section of this plan has been devoted to a strategic framework for management and implementation.

Downtown Portland Waterfront Activation Strategy | June 2014

1972

1975

1988

2003

2004

2006

2012

2014

Portland Downtown Plan

Downtown Waterfront Park Final Report

Central City Plan

Waterfront Park Master Plan

River Renaissance Strategy

The River Plan: River Concept

Central City 2035 Concept Plan

Downtown Portland Waterfront Activation Strategy

Expanded retail core oriented toward the waterfront

X

X

X

X

X

X

Commercial-recreational activities and commercial uses (shops, restaurants, entertainment) along the waterfront and in the park

X

X

X

X

X

X

X

X

X

A restaurant/shop complex at the Morrison Bridgehead

X

X

Convert old Visitor Information Center to an appropriate use such as a restaurant or community center

X

Relevant Planning Goals, 1972-Present

Study/consider potential for active uses under bridge ramps Tourist, civic, and cultural functions such as an aquarium, marine museum, amphitheater, botanical garden, or amusement-recreation center in Waterfront Park

X

More housing near the waterfront

X

Elimination of traffic barriers between the river and adjoining districts

X

Increased pedestrian access, and access for those with mobility impairments, along the waterfront and to/from adjacent districts and/or bridges Attractive pedestrian spaces achieved through establishing design standards for seating, plazas, and walkways Traffic-free pedestrian and bike connections to Old Town/Skidmore Fountain, Retail Core, and other districts adjacent to the waterfront Specially designed paved crosswalks with appropriate signalization on Front Avenue [Naito Parkway] to minimize it as a pedestrian barrier Close sections of Front Avenue [Naito Parkway] to provide traffic-free access to the waterfront

Separated bicycle path or lane where space permits, which connects with existing and proposed bicycle paths Placemaking elements (landscaping, lighting, connections) which emphasize visual and physical ties between the waterfront and the downtown

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

Front Avenue [Naito Parkway] tree patterns extended west toward the downtown on major pedestrian streets Increased pedestrian-bicycle circulation along the waterfront

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

Expanded access to the river

X

X

X

X

X

X

Places for people to observe river activities and scenic views (e.g. floating platform)

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

X

Activities on the water such as boat tours, pleasure boating, and “barge concerts” with supporting dock facilities Establish facilities that access the water’s surface (e.g. temporary boat tie-ups, swimming areas, a light craft center, and moorages) Improved links/access between east and west (e.g. shuttle transit between waterfront and the retail core) Provide north-south transit along the waterfront by “trolley” or other “fun vehicles”

X

X X

X

X

X

X

X

X

X

River taxi or ferry system with stops at public attractions and existing piers

X

More public restrooms at the waterfront

X

X

Enhance fish and wildlife habitat along the river

X

X

X

X

X

X

X

X

X

X

X

X

Enhance the river as a “focal point” for activities, recreational or commercial, that “knit” the city together Create a nonprofit corporation to ensure uninterrupted progress of plans as political and community leaders change

40 Years of Planning Portland’s “Front Yard”

X

X

X

X

X

X

X

27

4 EXISTING CONDITIONS

A number of factors prevent Waterfront Park from becoming a 21st century waterfront, including limited access to the Willamette River, limited boating options, an imbalance between natural and human elements, insufficient amenities such as food and seating, and restrictions on public use of the park throughout the prime summer months due to large, ticketed events.

29

EXISTING CONDITIONS Many of the same goals and aspirations related to activating the downtown waterfront have consistently appeared in official planning documents since the 1970s. Lacking implementation, and despite longstanding ambitions and decades of planning focus, efforts to embrace and enhance the Willamette River as the heart of Portland’s Central City have only partially been realized. Thus the same issues that were identified within the park and surrounding blocks in the 1988 Central City Plan, and again in the 2003 Waterfront Park Master Plan largely persist. Popular consensus, gleaned from public feedback gathered throughout the last four decades of Waterfront Park’s existence, indicates that the park is a beloved but underutilized public space that needs an update.

Interpretive displays and wayfinding signage are either non-existent or need to be replaced.

After analyzing current conditions in and around Tom McCall Waterfront Park, Watermark Planning identified a series of key issues and concerns, which were sorted into the following general categories: • • • • • •

Placemaking Access & Circulation Commercial & Recreational Boating Economic Development Natural Environment Events

In the following paragraphs, each category of issues and concerns is presented.

Historical markers at the park are not readily visible.

30

Placemaking While in many respects Portland’s Waterfront Park is seen as a regional asset and is the site of various large-scale gatherings and special events throughout the year, it does not feel like an everyday destination. According to survey results, most people visiting the park on at least a semi-regular basis are only passing through on their way somewhere else. A lack of regular programming, amenities, and services, both within the park and nearby, provides visitors with little reason to stop and spend additional time there. Survey respondents indicated a strong desire for ample seating and food options within the park. For many years, planning efforts have attempted to highlight and distinguish Waterfront Park as Portland’s “front yard,” as a complementary public space to Pioneer Courthouse Square, known affectionately as Portland’s “living room.” Currently, however, the waterfront feels disconnected from downtown and provides users with few clues to the site’s unique historical and geographical context, making it difficult for one to gain a clear “sense of place.”

Access & Circulation The seawall fronting Tom McCall Waterfront Park is currently used on an infrequent basis for docking larger vessels. Outside of the Portland Spirit River Cruises, there are no boats that call the downtown riverfront their home port. A few key issues and challenges drive the lack of commercial boating operations in Portland’s downtown. First, the zoning code currently does not allow overnight mooring as

Downtown Portland Waterfront Activation Strategy | June 2014

EXISTING CONDITIONS an outright use, forcing commercial boat operators into costly conditional use permits. In addition, services needed for commercial boating, such as utilities, waste disposal systems and seating areas for passengers, are not currently available in the Central Reach, and limited opportunities exist for private development of these services due to a lack of developable riverfront land and the conflict between a publically accessible greenway and the need for restricted access of commercial facilities. Successful commercial operations also require staging and ticketing areas for passengers and amenities, such as can be found in a train station.

Despite an increase in on-water recreation, there remains a disconnect between recreational boaters and Waterfront Park. There are a number of publically accessible docks within the Central Reach, but only one, along Riverplace Marina, is open to the public at Waterfront Park. Current docks are either poorly maintained and unusable (Ankeny Dock) or not located in areas with ready access to downtown (Duckworth Dock, Cathedral Park).

Federal constraints on new dock placement require creative use of existing facilities. Riverplace offers an opportunity but is privately operated and already experiences space conflicts at its public dock. There is also a lack of permanent mooring spots in key locations, especially around the Hawthorne Bowl and Ross Island, which can lead to degradation of shallow water habitat.

Bicycle and pedestrian conflicts are frequent on the Waterfront Park Esplanade.

Commercial & Recreational Boating

Rip-rap and debris on the Hawthorne Bowl beach

The Downtown Waterfront: Existing Conditions

Ankeny Dock closed and in a state of disrepair

The seawall fronting Tom McCall Waterfront Park is currently used on an infrequent basis for docking larger vessels. Outside of the Portland Spirit River Cruises, there are no boats that call the downtown riverfront their home port. A few key issues and challenges drive the lack of commercial boating operations in Portland’s downtown. First, the zoning code currently does not allow overnight mooring as an outright use, forcing commercial boat operators into costly conditional use permits. In addition, services needed for commercial boating, such as utilities and waste disposal systems, are not currently available in the Central Reach. Limited opportunities exist for private development of these services due to a lack of developable riverfront land and the

31

EXISTING CONDITIONS conflict between a publicly accessible greenway and the need for restricted access of commercial facilities. Successful commercial operations also require staging and ticketing areas for passengers and amenities, such as can be found in a train station. Despite an increase in on-water recreation, there remains a disconnect between recreational boaters and Waterfront Park. There are a number of publicly accessible docks within the Central Reach, but only one, along Riverplace Marina, is open to the public at Waterfront Park. Current docks are either poorly maintained and unusable (Ankeny Dock) or not located in areas with ready access to downtown (Duckworth Dock, Cathedral Park).

Federal constraints on new dock placement require creative use of existing facilities. Riverplace offers an opportunity but is privately operated and already experiences space conflicts at its public dock. There is also a lack of permanent mooring spots in key locations, especially around the Hawthorne Bowl and Ross Island, which can lead to degradation of shallow water habitat.

Vacant commercial space fronting Waterfront Park on Naito Parkway

32

Economic Development Currently Waterfront Park offers little in the way of food, drink, and other commercial attractions. To be clear, Waterfront Park is a public, open space and should be preserved as such. With the exception of Saturday Market, however, the scarcity of commercial activities in and around the park limits the area’s functionality as well as its attractiveness to a more diverse range of users. There is likely foregone revenue from permitting and use agreements in the park that could be leveraged to finance park improvements and ongoing maintenance.

Additionally, the adjacent urban edge, Naito Parkway, and the 1st through 3rd Avenue blocks provide little in the way of options to supplement the lack of commercial attractions in the park. Overall, there is significant unrealized potential, and likely substantial foregone revenue, both private and public, as the result of underdevelopment in the park and surrounding blocks.

Resident geese occupying the open lawn at the Hawthorne Bowl

Natural Environment As the interface between the Willamette River and downtown Portland, Waterfront Park functions as a buffer between the built and natural environments.

While an urban park designed for human access and use, the park is also important for avian and pollinator species that currently suffer from habitat fragmentation. There are very few areas of native plant species that can support wildlife and the few clusters of native plantings that do exist are largely piecemeal and do not engage park users in any meaningful way.

Non-native vegetation at the Hawthorne Bowl

Downtown Portland Waterfront Activation Strategy | June 2014

EXISTING CONDITIONS The balance between natural systems preservation and human access is most challenging in and around the Hawthorne Bowl. There are two key issues within the Bowl. The shallow water in the cove offers the only downtown westside habitat for migrating juvenile salmonids for over a mile while; it also is the only readily available direct access point into the river for boaters and swimmers. Federal regulations and our numerous Endangered Species Act listings require a prioritization of habitat improvement over human access. Future planning and design efforts focused on the Bowl will need to separate these competing uses of the river. Human access to the Bowl also suffers from an abundance of resident geese that cover the grassy areas in excrement.

Many cities around the world are struggling with this same challenge, and a number of humane tools exist for making the Bowl less attractive as a place for the geese to reside.

teardown further restrict access to the park’s open spaces on non-event days. The events impose a physical toll upon the park’s natural environment, and significant costs are associated with replanting the grass after event use. Furthermore, event fences and large tents create a physical barrier in the park.

By restricting visitors’ movements, these barriers exacerbate existing circulation problems within the park. Finally, the fact that there are more than 60 days during prime weather months in which the public must pay to enjoy the park, a public good, raises important equity concerns.

Summary of Challenges Event setup

Events Tom McCall Waterfront Park serves as the site of choice for various large, ticketed and fenced events.

While such events serve as popular attractions for the region’s residents and out-of-town visitors, the events’ presence and reach may be out of balance with what Portland residents and visitors desire for the waterfront. It can be argued that the park’s status as a public space is called into question when much of it is fenced-off to the (non-ticket holding) public during the most heavily used times of the year. As most event-days fall during periods of comparatively sunny weather, this means that the public space is least accessible to the public during the time of year that the park would be used the most. Set-up and

The Downtown Waterfront: Existing Conditions

Large-scale ticketed events frequently restrict free access to Waterfront Park’s green spaces during the prime summer months.

Portland’s downtown waterfront lacks vibrancy, largely as the result of difficult or unclear connections to the city’s downtown and surrounding neighborhoods, as well as a lack of commercial activities and attractions in and around the park.

There are often conflicts between modes, particularly pedestrians and cyclists, along the park’s very popular and limited pathways. In addition, there are few opportunities for commercial and recreational boating in Waterfront Park as well as opportunities for park visitors to engage directly with the river.

Furthermore, a better balance between natural and human elements in the park—including native vegetation, geese, shallow water salmon habitat, and people—is desired. Finally, public use of the park, a regional amenity, is restricted during summer months due to the dedication of a large swath of the park for limited access events. Overall, the implementation of goals targeted at addressing many of these issues over recent years has been hampered by City fiscal constraints.

33

5 COMMUNITY

ENGAGEMENT Throughout a four-month community engagement process that collected over 800 unique comments, the public and stakeholders told Watermark Planning that Waterfront Park could begin to live up to its unmet potential by providing greater access to the water, more amenities, improved pathways, and a better balance between daily park users and festivals.

35

COMMUNITY ENGAGEMENT Process: How the Planning Team Engaged the Community and Stakeholders Open House Events (March-May, 2014)

• Central City 2035/West Quadrant Community Open House (March 10) • Project overview; dot exercise with map of the park -- 96 comments received • Activate the Waterfront! Open House (May 10) • Alternatives and Case Studies highlighted • Approximately 30 visitors

Outreach Events in the Park (March-April, 2014) • Shamrock Run (March 16) -- 58 intercept surveys completed • Portland Saturday Market (April 6 and 12) -- 105 intercept surveys completed • “A Day in the Park” (April 27) -- at least 50 visitors • Arts and crafts activities for children, live music • Sports equipment rental and tourism information

More than 30 interviews with stakeholders and technical advisers (February-May, 2014)

• Business community, including an online survey and door-to-door conversations • Boating • Cultural and heritage associations • Environmental • Festivals and Tourism • Transportation and Access • Planning and Design

Online/Social Media Presence (February-May, 2014) • Online Survey -- over 300 responses • Online Map application -- 46 comments • Facebook -- 153 likes, over 80 posts, 41 people talking about “Activate the Waterfront!”

36

Media Coverage

• BikePortland blog • The Oregonian • KGW News Channel 8

Waterfront Park, in the Public’s Own Words

• KOIN 6 News

Introduction During a four-month community engagement process involving multiple surveys and outreach events, over 30 stakeholder interviews, a mapping application designed in-house, and the use of social media, Watermark Planning solicited the public’s input on how best to activate Waterfront Park and transform it into a world-class space.

Some key themes to emerge from respondents’ comments were the following: • the park does not live up to its full potential as a treasured Portland asset; • there is a strong but unmet desire to gain greater access to the Willamette River via the park for swimming, boating and watersports; • the boating community wants better access to the park and downtown from the river; • certain additional amenities (in particular, food and seating) must be present for the park become a more multipurpose and vibrant space year-round; • the experience of walking and cycling both within and to the park should be enhanced; and • there is a frustration with the presence of large events’ use of the park space.

The most important findings will be discussed in the following section. For a more detailed discussion of the community engagement process, the surveys, and feedback from stakeholders, please see Appendix A.

A

n online survey provided multiple opportunities for respondents to write in comments.

Several recurrent themes were apparent once these comments were compiled and reviewed. First, when asked to describe the park (“Waterfront Park is…”), the single-most frequent response is to describe the park in unqualified positive terms (27%). Some of the most commonly used words were “asset,” “treasure,” or “amenity.” While hardly a surprising finding, this clearly demonstrates that Waterfront Park is a beloved location to many residents and visitors. Interestingly, however, in the next most frequent cluster of comments (13%), respondents coupled a positive expression with a complaint or concern.

In these respondents’ views, Waterfront Park is “great but” has real problems that inhibit visitors’ enjoyment of the site.

Nearly an equal percentage of comments (11%) describe Waterfront Park as a place which is not all that it can be; instead, it has “potential” or is “underutilized.” The fourth most common write-in comment for this question (8%) was to express concerns about pedestrians’ and cyclists’ ability to move through and access the park.

Pedestrian-bicycle conflicts in the park were called out in multiple comments.

Downtown Portland Waterfront Activation Strategy | June 2014

COMMUNITY ENGAGEMENT Surveys

How do you typically get to and from the waterfront?

Watermark Planning conducted three unique surveys over the five-month planning process.

The planning team designed an intercept survey targeting event attendees, a longer online survey targeting the general population, and a survey tailored to solicit feedback from downtown business owners.

Survey Results A brief summary of the survey results follows. To review a complete copy of the surveys conducted and responses received, please see the Community Engagement Supplement.

Characteristics of Park Use

How frequently do you go to Waterfront Park?

Barriers to Visiting the Park Both the online and intercept surveys allowed respondents to provide a write-in response to regarding other barriers to visiting the park. Writein answers supplied most frequently included: a lack of comfort when walking or cycling along the path; difficulty in accessing the park via foot or bicycle; the large transient population in the park; insufficient parking; too few toilets; limited seating; and the weather.

Bicycle 40%

Car (including car-share) 17%

Walk 30%

What prevents you from visiting the waterfront more frequently?

"I'm happy with the frequency of my visits."

"I live too far away."

"There's not much to do."

"There's nowhere to eat."

"Lack of transit options nearby."

"Getting to the park is not easy."

"I do not feel safe."

"There are too many big events."

"Lack of water recreation options."

"I work too far away."

"It's too noisy."

120

Number of Responses

Transit (Bus/MAX/ Streetcar) 13%

100 80 60 40 20 0

Monthly

Weekly

Community Engagement

Rarely/Never

Daily

0

10

20

30

40

50

60

70

80

90

100

Number of Responses

37

COMMUNITY ENGAGEMENT What Would Make the Park More Usable Park users consider water access and food options to be valuable amenities that are lacking in Waterfront Park. Both the intercept and online survey respondents considered “more access to the water” to be the key change that would make the park most usable.

Businesses were asked a similar question about park usability, specifically focusing on “what additional features would benefit” their business.

While the same options were offered, 75% of businesses indicated that “better police presence” was the feature that would most benefit them.

Businesses responses also showed that they value the presence of other food service businesses nearby.

Portland Parks and Recreation, which conducted a survey on park usage in 2001, asked a similar question. They received similar responses, with more than 20% of businesses indicating that “better access to the river” and “more places to eat” would make Waterfront Park “truly great.”

In Watermark Planning’s survey, respondents were also able to write-in a response to this question.

The largest category of write-in comments (43%) focused on improving conditions for pedestrians and cyclists, with the vast majority calling for separated bike and pedestrian movement.

“Food kiosks or food carts” received the second largest number of responses for desired park amenities.

Respondents indicated a desire for better access to the Willamette River.

What would make the waterfront more useable?

More access to the water Food kiosks or food carts Boat/kayak rentals Restaurants or cafes Steps to the water from the seawall A playground More seating Water taxi Places to swim A public dock/boating facilities Other (optional; please write in) Better police presence A dog park Interactive historical displays Signs pointing me to attractions downtown Places to fish Better transit options closer to the waterfront Exercise equipment

0

50

100

150

200

250

Number of Responses

38

Downtown Portland Waterfront Activation Strategy | June 2014

COMMUNITY ENGAGEMENT Naito Parkway The online survey provided an option for respondents to write in their opinion regarding “what would make Naito Parkway an attractive destination for both Portland residents and visitors.” Interestingly, while the question was open-ended, nearly two-thirds of respondents (64%) chose to address transportation questions and made suggestions such as improving pedestrian and bicycle crossings, adding sidewalks, traffic calming, and lane reductions.

The remaining comments focused on placemaking and additional amenities (20%) and only 16% focused on commercial solutions like sidewalk cafes and additional street-level retail uses. This may reveal that, at least according to the public, a prime barrier to commercial activity along Naito is not as much a matter of commercial development but actually one of roadway design.

Clustering Activities in the Park Watermark Planning asked online survey takers to point out optimal locations for clustering activities within or adjacent to Tom McCall Waterfront Park. The resulting heat map and tabulated clicks indicate a strong preference for clustering activities in Waterfront Plaza, the Hawthorne Bowl, and the Meadow. (For the purposes of this exercise Waterfront Plaza is defined as the park area between the Hawthorne and Morrison Bridges and the Meadow as the park area between the Morrison Bridge and just north of SW Ash Street.)

Activity Cluster Heat Map

When asked to explain these proposed clusters,

respondents frequently emphasized the need to capitalize upon entertainment and water access opportunities in the Hawthorne Bowl and to take advantage of existing or planned future activities, such as encouraging activity near the future James Beard Public Market and the Morrison Bridge.

Desired Areas for Clustered Activity Waterfront Plaza Hawthorne Bowl

Characteristics of Survey Respondents

The Meadow Ankeny Plaza Friendship Circle Japanese-American Historical Plaza Willamette River Skidmore and Urban Edge Other

0 Naito Parkway is a busy thoroughfare that lacks clear pedestrian access in various locations. Sidewalks are also non-existent on the western edge of the park fronting Naito Parkway and visitors often have no choice but to walk in muddy grass or the bicycle lane.

Community Engagement

50

100

150

Number of Responses

200

Most survey respondents indicated that they live in the Portland Metro area (97% in the online survey and 77% in the intercept survey). The greater representation of visitors in the intercept survey is not surprising, given that these surveys were conducted during Shamrock Run and Saturday Market. Of those respondents who live in the Portland Metro area, the largest group of respondents (in both the online and intercept surveys) live on Portland’s east side west of 82nd Avenue.

39

COMMUNITY ENGAGEMENT One notable difference between the demographic composition of the surveys is that the percentage of non-white respondents was much higher in the intercept survey (29% compared with 11% in the online survey). This finding speaks to the importance of deliberately conducting community engagement activities in a range of locations in order to reach a more diverse audience. When gathering input about a public space such as a park, engaging with park users on-site represents an invaluable opportunity to reach people who may not typically be involved in the planning process.

Online Map Application at ActivateTheWaterfront.com

Race/Ethnicity of Respondents

White 71%

American Indian or Alaska Native 1% Asian 6% Black or AfricanAmerican 2% Hispanic or Latino 3% "I prefer not to answer."

More than one race 6%

40

11%

Online Map Application Watermark Planning designed an online map application that enabled viewers to provide location-specific comments on a base map showing the waterfront area. Of the more than 50 unique comments recorded, the majority (55%) were directed toward circulation or access issues in or near Waterfront Park. The remaining comments focused on economic development (17%), boating (9%), natural environment (6%), or an aspect of placemaking (6%).

organizations, representatives of festivals and tourism groups, and advocates in the areas of active transportation and accessibility. Because many of the interviewees have been engaged for years, or even decades, on issues concerning the Willamette River, Waterfront Park, or downtown neighborhoods or businesses, these interviews complemented survey efforts by offering a more nuanced and long-range picture of successes and challenges. Early in the process, the team also reached out to local experts in the field of public outreach to solicit feedback on the engagement process. In addition, Watermark contacted planners in several other cities to better inform the case studies being developed. Many insights shared during interviews served to inform Watermark Planning’s final recommendations. See Appendix A for interview summaries.

Interviews The Watermark Planning team conducted inperson interviews with over 30 members of the community, including downtown business owners, members of the boating community, representatives of cultural and heritage associations, representatives of environmental

Watermark Planning staff surveyed visitors at the Portland Saturday Market.

Downtown Portland Waterfront Activation Strategy | June 2014

COMMUNITY ENGAGEMENT Summary

The Watermark Planning team set up a “stand” alongside regular market vendors to capture public input at the Portland Saturday Market.

Activities for children provided parents with the opportunity to chat about what could make Waterfront Park a better place.

Informal planning conversation with a member of the public at the Bill Naito Legacy Fountain during Portland Saturday Market.

A planner engaging a parent in conversation while her children played with sports equipment and games on the lawn at “A Day in the Park.”

Community Engagement

The Watermark Planning team found that there is great value in engaging with park visitors on location within the park. Experiences during both Saturday Market and “A Day in the Park,” where non-white, non-native-English-speaking families with small children were active participants, demonstrated that such events can provide an opportunity to interact with people who, as users of this public amenity, are deeply affected by park planning issues but often remain underengaged in the public planning process. They may not necessarily be able to attend public meetings because of language barriers, family obligations, or childcare but may be able to participate in an informal setting in a location that they already frequent. In order to reach a more diverse audience, Watermark Planning urges the City to consider hosting similar events on-site in Waterfront Park.

41

6 21 CENTURY ST

U.S. RIVERFRONTS Successful waterfronts have innovative management organizations, are destinations, have a diversity of spaces and programming, and use placemaking to create truly special places.

43

21 CENTURY U.S. RIVERFRONTS: BOSTON ST

Introduction

21st Century U.S. Riverfronts: Lessons Learned

E

ach of the four case studies offers important guidance for the future of Portland’s waterfront. One of the most important lessons gleaned from conducting this research is that cities cannot rely exclusively on public funding to finance large waterfront projects, especially in the post-recession era. Louisville and Pittsburgh created non-profit entities to manage the funding and management of their waterfronts, and Columbus and Boston formed publicprivate partnerships for the same purpose.

These innovative organizations have been able to harness private capital and sustain a consistent waterfront vision for far longer than a standard election cycle permits.

Another key lesson learned here is that waterfronts are most successful when they are destinations not only for tourists but also for locals. The waterfronts in the four case study cities feature a diversity of spaces and programming, drawing crowds for everyday use and not just during special events. Overall, these cities have utilized placemaking to create truly special spaces that celebrate local culture and history, ultimately serving to connect waterfront users to the place in which they are spending time.

44

Boston, Massachusetts

narrow strip of parkland between the seawall and an alley running along the backyards of Beacon Street residences. With the construction of Storrow Drive in 1950-51, the Esplanade’s parkland was significantly reduced in size. As a stipulation, all parkland that was lost due to the construction of Storrow Drive had to be replaced by newly created land; an island and a series of lagoons were then constructed in the Basin, which continue to be popular with non-motorized boaters. As currently defined, the Esplanade consists of an approximately 1.2-mile stretch of parkland abutting Storrow Drive between the Longfellow Bridge and the Harvard Bridge. Water quality in the once heavily polluted Basin has improved dramatically in recent years, attracting people back to the river and creating improved habitat for wildlife.

In 1997 the Metropolitan District Council (MDC), managers of the Charles River Basin since its completion in 1910, began developing the first master plan for the Basin in over 60 years. The Charles River Basin Master Plan, completed in 2002, is intended to be a guide for management, planning, and design decisions. It emerged from an extensive public process that occurred over approximately two years. The plan’s timeframe anticipates implementation over a 5- to 15year period. Its final section includes detailed inventories, existing conditions reports, and recommendations for the thirty distinct project areas in the Basin, one of which is the Esplanade.

The Charles River Esplanade was originally created between 1903 and 1910 in conjunction with the Charles River Dam to serve as a promenade on a

Charles River Esplanade, Boston

Watermark Planning studied examples of successful waterfront development projects across the United States to discover what made those waterfronts vibrant places. In selecting these cities, Watermark Planning identified urban waterfronts with similar river sizes to the Willamette, similar population size and density, and a number of characteristics or features shared with Portland’s waterfront.

Based on these criteria, Watermark Planning chose to study waterfronts in Boston, MA; Columbus, OH; Louisville, KY; and Pittsburgh, PA.

Charles River

Downtown Portland Waterfront Activation Strategy | June 2014

21 CENTURY U.S. RIVERFRONTS: BOSTON ST

Key Goals

Strategies and Solutions

Signature Features

• Establish a guide for management, planning, and design decisions in the Charles River Basin after a 60 year absence of any such plan • Engage and mobilize a broad base of public support within the planning and implementation processes • Implement recommendations over a 5-15 year period

• Manage the scope and nature of special events on the Esplanade to avoid degradation of the resource and unnecessary impacts on surrounding neighborhoods.

• Establish pedestrian zones that exclude wheeled users, with the intention of establishing a separation of high and low speed traffic and providing safe areas for people who wish to walk along the river. Achieve new pattern through signs, ranger enforcement and changes in pavement at the entrances.

• Eliminate worn grass and replace it with stone dust, pea gravel, or unit pavers in heavily-trafficked areas • Promote an adopt-a-dock program with local businesses, institutions, and individuals • Establish a “Basin Council” or similar advocacy group

• The establishment of The Esplanade Association in 2001, a private-partner organization dedicated to restoring and enhancing the Charles River Esplanade, has led to an impressive series of improvements and enhancements to the park, including replacement of benches, dock renovations, launch of a park volunteer program, launch of a geese control program, free summer programming, construction of an esplanade Playspace, and restoration of a memorial, among others.

• Esplanade Playspace (funded by Friends of Esplanade Playspace) • Eliot Memorial and surrounding landscape and maintenance improvements (funded through publicprivate partnership with The Esplanade Association) • Multiple dock replacements (funded through publicprivate partnerships with The Esplanade Association, Community Boating, and private foundations)

Challenges and Issues • The basin is showing signs of wear after a century of use. Factors that have contributed to this deterioration include decades of underfunding, reduced park staffing, and deferred maintenance.

• There is a recognized need to manage large events that occur at the Hatch Shell (outdoor amphitheatre) and especially to mitigate turf wear that is the direct result frequent events • Need to manage pedestrian/cyclist conflicts and congestion issues on busy pathways within the park • Very busy road (Storrow Drive) that serves as a barrier directly abutting parkspace • Ongoing maintenance and operations shortfalls due to lack of funding and reduction of staff • Need for improved public safety • Need for increased vegetation management • Limited staff resources • Limited stakeholder coordination • Desire to upgrade visitor experience and enhance recreational opportunities.

Characteristics Shared with Portland • • • • • • • • • •

River size and depth Bridges Seawall Presence of major events space Very busy road that serves as a barrier directly abutting parkspace Limited safe pedestrian access to the Esplanade from the surrounding neighborhoods Turf wear as the result of frequent events Ongoing maintenance and operations shortfalls due to lack of funding and reduction of staff Pedestrian/cyclist conflicts and congestion issues on busy pathways within the park Recently improved water quality following a history of heavy pollution.

“T

he vision for a renewed Charles River Basin cannot become a reality without substantially greater financial support from the Commonwealth, private partners, and basic users. The MDC cannot do this work alone… Careful weaving of public and private investment can accomplish the ambitious renewal strategies of this Master Plan.”

-Charles River Basin Master Plan, 2002

21st Century U.S. Riverfronts

45

21 CENTURY U.S. RIVERFRONTS: COLUMBUS ST

envisioned enhancing the central city’s existing riverfront parks and developing new housing for up to 10,000 residents to create a 24-hour downtown.

The final riverfront park plans, focused on key activity centers connected by attractive pedestrian pathways, mirrored the public’s clearly expressed goals of providing “public access to the riverfront” and a “balance of uses.” In 2008, the City of Columbus began construction of the Scioto Mile, a $39 million promenade and park. Between 2000 and 2010, downtown Columbus has seen over $2 billion in public and private investments and a population increase of nearly 5,000 people.

Key goals Bicentennial Park and the Scioto Mile promenade in downtown Columbus

Columbus, Ohio Scioto River

During the latter half of the 20th century, downtown Columbus suffered from the familiar story of central city flight. Density plummeted, and surface parking lots replaced housing to meet the need of a growing commuter culture. Retail disappeared and downtown parks were utilized primarily by employees during the lunch hour.

Two major plans provided a series of visions that have guided the redevelopment of the Scioto Riverfront, the “civic heart of Columbus,” since the 1990s: the 1998 Columbus Riverfront Vision Plan and the 2002 Strategic Business Plan for Downtown Columbus. To catalyze the revitalization of the downtown core, Mayor Michael B. Coleman

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• • • •

Make the riverfront a destination Connect parks via pedestrian and bicycle routes Develop the riverfront as a cultural spine Enhance primary gateways into downtown from the parks through distinct pedestrian streetscaping • Roadways adjacent to parks shall be parkways and extensions of the open space

Challenges and Issues • Programming • Sponsorship • $750,000 annual operating budget for two central riverfront parks

Strategies and Solutions • Park promotion: website (Sciotomile.com) • Park ambassadors increase presence and provide support • $20,000,000 in matching private funding • Private funding champion (American Electric Power Foundation; $10 million matching grant) • Regularly-occurring, free, family friendly programming • Street vendors • City-developed cafe leased out to private entity provides revenue source • Housing incentives - 15 year tax abatements • Increased parking stalls by building structures • Downtown “people mover” shuttle system and moved parking away from sites adjacent to park • Riverfront Commons Corporation • Public nonprofit plays role of economic development agency along riverfront corridor • Streetscaping with different lighting and signage along primary pedestrian corridors connecting downtown to riverfront

Characteristics Shared with Portland • Seawall/Floodwall • Redesign and implementation of existing park spaces • Public anathema to getting into river

Downtown Portland Waterfront Activation Strategy | June 2014

21 CENTURY U.S. RIVERFRONTS: COLUMBUS ST

Signature Features

The Performing Arts Pavilion at Bicentennial Park.

The Scioto Mile promenade.

The fountain at Bicentennial Park, featuring interactive light displays, is a popular playspace for people of all ages.

The new Mile 229 Restaurant, offering 360-degree views of the Scioto riverfront.

21st Century U.S. Riverfronts

• Center of Science and Industry (COSI) is on the opposite side of the river from the Scioto Mile. This museum creates a visual connection across the river and provides a civic amenity similar to OMSI in Portland.

• The fountain at Bicentennial Park cost $10 million and is considered the centerpiece of the park.

Creative lighting displays provide an evening attraction and activate the park beyond daylight hours. The fountain is integrated with a privately run cafe/restaurant and an amphitheater with a permanent covered stage.

• The Performing Arts Pavilion at Bicentennial Park is sponsored by Franklin County and hosts free music, dance, and theatrical performances. The Pavilion also offers rental opportunities for other community events, providing a source of revenue to the City.

• A privately run restaurant, Milestone 229, overlooks Bicentennial Park and provides a constant source of activity. The glass-enclosed structure with a covered outdoor dining terrace provides panoramic views of the riverfront and the downtown skyline.

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21 CENTURY U.S. RIVERFRONTS: LOUISVILLE ST

the Louisville Waterfront Master Plan, which was adopted by city ordinance in 1991 to guide the design and development of Waterfront Park and the surrounding Waterfront neighborhood. Phase 1 of the 72-acre Waterfront Park was completed in 1998 and Phase 3 was completed in 2009.

Key goals

Louisville’s Ohio River Waterfront

Louisville, Kentucky Ohio River

In Louisville’s early years, activity centered around the Ohio River, but by the 20th century, the city outgrew its dependence on its wharf and industrial waterfront and most of the land had been abandoned. Interest in redeveloping the waterfront - which had become a blighted area of heavy industry, warehousing, and salvage - began to grow in the 1970s. The Waterfront Development Corporation (WDC) was established in 1986 to plan, coordinate, and implement waterfront revitalization strategies. The WDC, a non-profit public-private partnership, was created by an interlocal agreement between the County, City, and Commonwealth of Kentucky. The WDC created

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• Let the river be a river • Let the people have green space by the river • Let the Waterfront design come from the natural ecology of the river’s shore and find its way into the city • Let the city edge be redesigned to preserve, enhance, and respect the classic grid and density established in the early years of the city as it grew out of the wilderness • Let the urban force on the one side meet the natural continuum of the Ohio River on the other, in a people-oriented place that attracts active participation • Let the evolution of Louisville meld the natural setting of the Waterfront with the development needs of a large city

Strategies and Solutions • Phasing that can respond to funding opportunities as they arise • Public-private partnership - majority of funding has come from private donors • Hierarchy of paths and paths separated by modes bicycle trail separated from ped • Distinct areas of the park for different activities • Hardscape areas meant to be gathering spaces and to host festivals • Encouraged the development of residential uses adjacent to the park to create continuous public activity and constituency for the park that will protect it and be sure it is cared for • Encouraged the development of retail and office uses in areas adjacent to neighborhood to further reinforce the day long and weekend use of park • Designed the streets that link the downtown to the park to serve as gateways • Developed a restaurant in the park and use the lease payments to help fund the operating budget • WDC maintenance employees are uniformed and help police the park • Chose an executive director for WDC that was seen as credible both locally and statewide

Characteristics Shared with Portland Challenges and Issues • Land cleanup and acquisition • Highway was a barrier between the city and the river • Not much residential use near the riverfront • Electoral politics prevented continued focus on revitalizing the waterfront

• Riverfront park separated from the downtown by a major barrier (highway) • One of the bigger attractions is the Belle of Louisville, similar to the Portland Spirit • Strong desire to increase human access to the river • Summer months are very event-heavy • City population is approximately the same • Park is located in the downtown area of the city

Downtown Portland Waterfront Activation Strategy | June 2014

21 CENTURY U.S. RIVERFRONTS: LOUISVILLE ST

Signature Features • Festival plaza is a 3.5-acre rectangular plaza designed for the vending component of large events.

The plaza is surfaced with crushed granite and has bands of concrete running through it where utility hookups are located for concessionaires.

• The Brown-Forman amphitheater accommodates several thousand people on grass risers and the surrounding hillside and features a concrete stage area.

• Tumbleweed Restaurant is located within the park and the lease helps fund the Waterfront Development Corporation’s operating budget.

• Adventure Playground is a play area for children that includes play equipment designed to reflect Louisville’s river heritage and a large waterplay area.

• A “swing garden” offers a place to relax on dozens of large porch-style swings with a view of the river.

• A community boathouse located by the harbor inlet, provides canoeing, kayaking,and rowing opportunities and a site to launch and store boats.

“O

Adventure Playground features Louisville’s steamboat heritage.

play

equipment

reflective

of

ne of the neatest things about this park is that it has been chosen by the community as the central place where people want to be, whether for a college pep rally, health walk, volleyball tournament, a game of bocce ball, or just as a quiet place to read the newspaper. There are no strangers as kids play together in the fountain and play area, and people walking or running in the park smile and nod as they encounter others along the way. The park is often referred to as the “new front door” to the community, and it seems to be the place where everyone starts when they want to show off Louisville to visiting friends or relatives.”

-Project for Public Spaces

Festival Plaza, complete with a crushed granite surface, provides a large gathering space with plentiful seating options for visitors.

21st Century U.S. Riverfronts

Terracing of the sloped lawn at the Brown-Forman Amphitheater provides comfortable seating for concerts and other performances.

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21 CENTURY U.S. RIVERFRONTS: PITTSBURGH ST

Downtown Pittsburgh and Three Rivers Park (center left)

The framework undergirding Pittsburgh’s river planning is the Riverfront Development Plan, which grew out of the 1989 Plan for Pittsburgh’s Riverfronts. The late 1990’s were a pivotal period for river planning in Pittsburgh: a separate Rivers Conservation Plan was developed, and the Riverlife Task Force (now Riverlife), a public-private partnership, was appointed by Mayor Tom Murphy.

Riverlife developed an award-winning document, A Vision Plan for Pittsburgh’s Riverfronts (2001).

Riverlife focused its initial energies on the creation of Three Rivers Park, to be a great urban park located at the rivers’ confluence. Most recently, a specific plan for the Allegheny River was developed (2009): the Allegheny Riverfront Vision Plan is a product of the Urban Redevelopment Authority of Pittsburgh, the City of Pittsburgh Department of City Planning, the mayor’s office, and Riverlife.

Pittsburgh, Pennsylvania

Key Goals

Allegheny and Monongahela Rivers

Located at the point where the Monongahela and Allegheny Rivers join to become the Ohio River, Pittsburgh is in many senses defined by its rivers and its 36 miles of riverfront. After nearly a century and a half of heavy industry centered on iron, glass and steel manufacturing, the decline of the steel industry has allowed Pittsburgh to move beyond its earlier moniker as the Smoky City and descriptions such as “hell with the lid off.” As the industrial legacy and concomitant pollution recedes, Pittsburgh has garnered a reputation as a livable and clean city. As part of this transformation, Pittsburgh is rediscovering its rivers.

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• Create interconnected linear waterfront development with extensive public access both to the waterfront and to the river itself • Promote economic vitality • Showcase the river’s history • Repair and enhance the environment • Provide seamless connections along the riverfront and into neighborhoods

Challenges and Issues • Public spaces along the riverfront are disconnected from one another • Poor connections in riverfront districts and limited access and views to the river • Parks tend to be used for large events rather than daily activity

“T

he vision detailed in [The Vision

Plan for Pittsburgh’s Riverfronts]

proposes a radically different way of thinking about the rivers and the waterfront. Certainly, as Riverlife discovered in its community meetings, the rivers are many different things to many different people, repositories of a vast and varied range of hopes and expectations and uses. But where they come together – where their future lies – is as a center of community life. It is precisely their potential to meet so many different human needs – from the recreational to the aesthetic to the commercial – that gives the rivers their transcendent power. They are, very clearly, a “place”: a multi-faceted but nonetheless cohesive gathering point for a community and its idea of itself.”

-The Vision Plan for Pittsburgh’s Riverfronts, 2001

Downtown Portland Waterfront Activation Strategy | June 2014

21 CENTURY U.S. RIVERFRONTS: PITTSBURGH ST

Strategies and Solutions • Creation of a public-private partnership (Riverlife) to manage the long-term planning and development of Pittsburgh’s riverfronts • Put into place design standards and a formal design review process for development at the rivers’ edge • Craft and enact a funding strategy that not only considers new development costs but the ongoing costs of maintenance • Make use of strategic catalysts by targeting key individual sites, or introducing infrastructure, that could encourage localized development • Utilize existing buildings by repurposing them with the intent to revitalize neighborhoods while preserving their essential character

Characteristics Shared with Portland

“Water steps” at North Shore Riverfront Park fronting the Allegheny River

Pittsburgh’s many bridges are in the spotlight on the skyline at night.

“The Point” provides access to the water for pedestrians, bicyclists, kayakers, and more.

The world-touring Rubber Duck Project passing through Pittsburgh via the Allegheny River

• Both Portland’s Waterfront Park and Pittsburgh’s Point State Park are approaching a half-century of life and could benefit from modifications.

• Bridges serve an iconic role in the cities’ identities • The riverfront area is a regional draw

Signature Features • • • • • •

Three Rivers Park Mon Wharf North Shore Public Art Bridge Lighting “The Point”

21st Century U.S. Riverfronts

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7

RECOMMENDATIONS FOR ACTIVATING THE WATERFRONT “T

h e ultimate goals of the Master Plan are simple—to bring greater enrichment to those who live, work, and seek recreation in downtown Portland, Oregon; to bring people together; to generate more life in the park; and to strengthen its connection to the downtown.

These ideas were a part of the 1975 plan and they remain powerful and compelling notions. Much has changed in the city since then however, and a fresh approach to achieving these goals has to be defined.”

-Waterfront Park Master Plan, 2003

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RECOMMENDATIONS: INTRODUCTION Introduction Popular consensus, gleaned from public feedback gathered throughout the last four decades of Waterfront Park’s existence, indicates that the park is a beloved but underutilized public space that needs an update. The recommendations that follow take into consideration the history of consistent goals and non-implemented visions for the waterfront, with a specific focus on overcoming barriers to implementation. While many of the goals throughout this section have been echoed throughout the waterfront’s planning history, some of the recommendations are more contemporary, designed to create a dynamic and inviting 21st century waterfront.

Watermark Planning established three guiding principles on which to build goals and objectives: 1. Make the riverfront a vibrant place year-round.

2. Better connect the river to the downtown.

3. Promote and celebrate the riverfront as a public space and resource.

Through discussion with stakeholders, including City agencies, Watermark Planning developed these principles as central themes for the next iteration of Waterfront Park.

Salmon Street Springs seating area

54

Many of the recommendations that follow are contingent upon Portland Parks and Recreation undertaking an update to the 2003 Waterfront Park Master Plan—which, to date, remains largely unimplemented. A new master planning process is expected within the next five years and therefore has not been included as a specific recommendation.

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: INTRODUCTION How to Use this Section

KEY: RECOMMENDATION THEMES

PLACEMAKING ACCESS & CIRCULATION COMMERCIAL & RECREATIONAL BOATING

Using the principles listed above to guide the research and outreach phases of this project, Watermark Planning developed a set of six themes around which to align goals for the downtown waterfront.

Icons are used throughout the following sections to illustrate the relevance of certain actions across multiple themes. A key identifying the icon associated with each recommendation theme is provided at left.

Each of the following sections contains policy goals relevant to each theme, followed by visionary but pointed objectives that respond to the goals; action items are listed under each objective.

ECONOMIC DEVELOPMENT NATURAL ENVIRONMENT EVENTS

Recommendations: Introduction

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7.1 RECOMMENDATIONS:

PLACEMAKING

While in many respects Portland’s Waterfront Park is seen as a regional asset and is the site of various large-scale gatherings and special events throughout the year, it does not function as an everyday destination. A concerted placemaking effort would help to restore the waterfront’s prominence as a vital center of activity within the Central City.

57

RECOMMENDATIONS: PLACEMAKING Placemaking Challenges • Waterfront Park provides users with few clues that highlight the site’s unique historical and geographical context, making it difficult for visitors to gain a clear “sense of place.”

• Portland’s waterfront feels disconnected from its downtown • A lack of regular programming, amenities, and services, both within the park and nearby, provide little reason to stop and spend additional time in Waterfront Park

Great Ideas from Other Cities

Goal: Highlight Portland’s uniqueness through arts and culture on the waterfront Due to its location at the heart of the Central City, Portland’s waterfront is an ideal place to feature what has made and continues to make the city a great place. There are abundant opportunities to use culture and the arts as a means of showcasing the many identities of the city and its residents.

Objective: Waterfront Park is a place where Portland’s unique history and natural environment are celebrated.

Actions:

Louisville, Kentucky

A

dventure Playground was designed to reflect Louisville’s river and steamboat heritage, giving children and families a hands-on opportunity to experience history.

58

• Develop interactive art installations or permanent exhibits that educate, inspire and/ or serve a practical or wayfinding function (e.g., create “tree stump” seating dispersed throughout the park to symbolize Portland’s early nickname “Stumptown”) • Install an interactive play structure for children designed to incorporate Portland’s maritime and Native American history (e.g., a steamboat, play bridges, and dug-out canoes) • Install crosswalk art (e.g., crosswalks representing salmon, other local flora and fauna)

Objective: Waterfront Park is a public space for the expression and enjoyment of the arts and culture for all.

Portland’s connection to the region’s wild salmon could be highlighted through crosswalk art that serves a wayfinding function and helps to guide visitors to the waterfront from downtown.

Actions:

• Design public space for ongoing or rotating art displays • Organize public art walks to connect established galleries, pop-up exhibits in vacant spaces, and more cutting-edge openair exhibits • Install lighting on the bridges to transform them into dynamic nighttime attractions • Explore the feasibility of art on the seawall • Prioritize and promote art and cultural events that are affordable to and representative of a larger segment of regional residents

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: PLACEMAKING Goal: Help people to understand and appreciate the waterfront’s historical and geographical context There are currently few ways for people visiting Waterfront Park to understand and appreciate their location and its significance in Oregon’s history and geography. Improving wayfinding and informative displays both to and within the park affords people the opportunity to fully discover their surroundings and engage with the built and natural environments.

Objective: Waterfront history is highlighted in and near Waterfront Park.

Actions:

• Update and replace historical markers using the example of the Eastbank Esplanade • Increase awareness of Native American history of the Central City and the Willamette River • Increase awareness of the political legacy of Tom McCall, the park’s namesake, and his significance to the State of Oregon

Great Ideas from Past Plans

Objective: Multiple ways exist for people to experience the “you are here” concept in the park.

Actions:

• Extend the street grid into the park through a series of paved pathways leading to viewing platforms over the seawall • Install street signs identifying cross-street connections to Downtown along promenade in the style of the cross-street signs on the Eastbank Esplanade • Install bridge signs clearly visible to passersby in the park • Identify the Willamette River through signage

“E

nhance the Willamette River as the focal point for views, public activities, and development which knits the city together.”

“Locate a wide range of affordable and attractive public activities ... along the riverbank and create frequent pedestrian access to the water’s edge.”

-Central City Plan, 1988

Wayfinding signage on the Eastbank Esplanade identifies crossstreets, reinforcing the connection between the eastside waterfront and its adjacent blocks.

Recommendations: Placemaking

59

RECOMMENDATIONS: PLACEMAKING “Tactical Urbanism” Tactical urbanism is an important placemaking tool that Watermark Planning recommends for use in Tom McCall Waterfront Park to the greatest extent possible.

Tactical urbanist techniques are especially critical as short-term measures to be applied prior to the implementation of more capitalintensive projects. The term tactical urbanism refers to an approach to placemaking that employs low-cost or temporary measures to spur movement towards a long-term transformation.

Its five characteristics have been identified by Mike Lydon, of the Street Plans Collaborative, as: • “a deliberate, phased approach to instigating change; • an offering of local ideas for local planning challenges; • short-term commitment and realistic expectations; • low risks, with a possibly a high reward; • and the development of social capital between citizens, and the building of organizational capacity between public/ private institutions, non-profit/NGOs, and their constituents.”

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Moveable tables and chairs at Bryant Park in New York City create a dynamic, flexible space for people to congregate.

Terraced lawn seating area in Grand Rapids, Michigan

Goal: Make the park a regular and year-round destination where people want to spend time

Objective: Park visitors feel safe and comfortable in Waterfront Park.

As a regional amenity, Waterfront Park should be a place that people of all ages and backgrounds can enjoy on a regular basis. Currently, however, the park is underutilized. Some of the common reasons survey respondents gave for not visiting the park more often were the lack of seating, food options, and everyday activities. In order to transforming the park from a place people pass through to a destination in and of itself, attractive amenities must be added to make it an inviting place.

Actions:

• Install a variety of seating throughout the park, including furniture for eating • Install terracing in the Bowl to create a more formal amphitheater for enjoying performances as well as views of the river • Install covered areas in conjunction with seating • Provide and maintain safe public restrooms at convenient locations throughout the park • Improve lighting throughout the park • Increase security through the presence of park ambassadors • Install more trash and recycling receptacles

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: PLACEMAKING Objective: The waterfront is an engaging place for users of all ages.

Actions:

• Build an all-weather skatepark and public plaza at the base of the Steel Bridge • Install an interactive play structure in the park for children designed to incorporate Portland’s maritime and Native American history (e.g., steamboat, play bridges, and dug-out canoes)

Implementing Placemaking Recommendations The Regional Arts and Culture Council and the Portland Development Commission have designated $280,000 for public art within the Downtown Waterfront Urban Renewal Area, which can be used for projects within Waterfront Park.

There are also local and regional organizations that fund culture and heritage projects. Two national organizations, ArtPlace America and the National Endowment of the Arts, have recently developed grant programs specially for placemaking projects.

Recommendations: Placemaking

Lighting and utilizing the underside of bridges and overpasses as public space in Birmingham, Alabama

Waterfront playground in Denmark honoring the country’s maritime culture

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PLACEMAKING: Goals and Objectives

Timeframe

Action

1-3 Years

Develop interactive art installations or permanent exhibits that educate, inspire, and/or serve a practical or wayfinding function

Goal: Highlight Portland’s uniqueness through arts and culture on the waterfront Objective: Waterfront Park is a place where Portland’s unique history and natural environment are celebrated.

4-10 Years

11-20 Years

Ongoing

Implementer(s) Related Planning (Lead in bold) Themes

X

PPR, private

X

PPR, private

(e.g., crosswalks representing salmon, other local flora and fauna)

X

PBOT, private

Design public space for ongoing/rotating art displays

X

PPR, private

Organize/program public art walks to connect established galleries, pop-up exhibits in vacant spaces, and more cuttingedge open-air exhibits

X

PDC, private

Install lighting on the bridges to transform them into dynamic nighttime attractions

X

Multnomah County, private

(ex: Create “tree stump” seating dispersed throughout the park to symbolize Portland’s early nickname “Stumptown”) Install an interactive play structure for children designed to incorporate Portland’s maritime and Native American history (e.g., steamboat, play bridges, and dug-out canoes)

Install crosswalk art

Objective: Waterfront Park is a public space for the expression and enjoyment of the arts and culture for all.

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Explore feasibility of art on the seawall

X

PPR, private

Prioritize and promote art and cultural events that are affordable to and representative of a larger segment of regional residents

X

Private

Explore the feasibility of installing a bandshell in the park

X

PPR, private

Downtown Portland Waterfront Activation Strategy | June 2014

PLACEMAKING: Goals and Objectives Goal: Help people to understand and appreciate the waterfront’s historical and geographical context Objective: Waterfront history is highlighted in and near Waterfront Park.

Action

Timeframe 1-3 Years

Objective: Park visitors feel safe and comfortable in Waterfront Park.

PPR, private

Increase awareness of Native American history of the Central City and the Willamette River

X

PPR, tribal organizations

Increase awareness of the political legacy of Tom McCall, the park’s namesake, and his significance to the State of Oregon

X

PPR, private

X

Recommendations: Placemaking

PPR, PBOT

Install street signs identifying cross-street connections to Downtown along promenade in the style of the cross-street signs on the Eastbank Esplanade

X

PPR

Install bridge signs clearly visible to passersby in the park

X

PPR

Identify the Willamette River through signage

X

PPR

Install a variety of seating throughout the park, including furniture for eating

X

PPR, private

Install covered areas in conjunction with seating

X

PPR

X

Provide and maintain safe public restrooms at convenient locations throughout the park

PPR X

PPR, PWB, private

Improve lighting throughout the park, particularly under bridges

X

PPR, Multnomah County, private

Increase security through the presence of park ambassadors

X

PPR

Install more trash and recycling receptacles

X

PPR

Build an all-weather skatepark and public plaza at the base of the Steel Bridge Objective: The waterfront is an engaging place for users of all ages.

Ongoing

Implementer(s) Related Planning (Lead in bold) Themes

X

Install terracing the bowl to create a more formal amphitheater for enjoying performances as well as views of the river

Goal: Make the park a regular and year-round destination where people want to spend time

11-20 Years

Update/replace historical markers using the example of the Eastbank Esplanade

Extend the street grid into the park through a series of paved pathways leading to viewing platforms over the seawall Objective: Multiple ways exist for people to experience the “You are here” concept in the park.

4-10 Years

Install an interactive play structure in the park for children designed to incorporate Portland’s maritime and Native American history (ex: steamboat, play bridges, and dug-out canoes)

X

X

PPR, private

PPR, private

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7.2 RECOMMENDATIONS:

ACCESS & CIRCULATION

While access - to the water, to the park itself, or through the park - is extremely important to park users, the park remains disconnected from both the downtown and the Willamette River.

Reconnecting the park with its surroundings and enhancing movement within the park will increase the park’s value as an urban public resource.

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RECOMMENDATIONS: ACCESS & CIRCULATION Goal: Improve park visitors’ ability to access the water

Rip-rap at the Hawthorne Bowl beach currently prevents easy access to the water’s edge.

“Access to the water” was the single most frequent response given by respondents, in both online and intercept surveys, when they were asked “What would make the waterfront more usable?” Other than the Hawthorne Bowl, there are no locations in Waterfront Park that provide direct access to the water. Even so, the presence of rip-rap rocks in the Bowl and the lack of a clear, good path to the water’s edge prevent people seeking access to the water from fully utilizing this area.

Organizations such as the Human Access Project have been instrumental in getting people into the Willamette River through events such as the Big Float. They have had a role in shaping the signage that appears in the Hawthorne Bowl so that there is at least some indication that swimming is permitted here; nonetheless, few people choose this as a swimming destination. The lack of direct contact with the river contributes to Portlanders’ and visitors’ lack of knowledge about the Willamette. In fact, park visitors often express surprise when they learn that the river is clean enough for swimming.

Access & Circulation Challenges

Objective: Park visitors swim in the river and recreate by the water’s edge.

• Physical and visual access to the water is limited, making it difficult for visitors to engage in water activities or engage visually with the river.

• Park visitors experience difficulty accessing the park from downtown and the bridges.

• Pedestrian-bicycle conflicts in the park, along with a lack of path varieties, hamper people’s enjoyment and sense of safety.

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Actions:

• Remove rip-rap rock in selected areas to create an area conducive to swimming • Create a beach • Provide a changing facility for beach visitors

Objective: Residents and visitors are aware of the improved water quality of the Willamette.

Great Ideas from Past Plans

“C

reate a cantilever walkway that provides views to the river, dock, and Ankeny Plaza.

This cantilever walkway is envisioned to be supported by vertical elements that suspend the walkway over the river and provide a vertical element that can identify the Ankeny Plaza space from the surrounding city.”

-Waterfront Park Master Plan, 2003

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: ACCESS & CIRCULATION Action:

• Launch an educational campaign to inform residents of water quality issues and other topics concerning the environmental health of the river and its flora and fauna

Objective: Tom McCall Waterfront Park is a destination for watersports activity.

Actions:

• Improve access to Hawthorne Bowl beach • Encourage a new boat rental facility near Hawthorne Bowl • Expand options for paddle boats, including beach access and at least one low dock near the downtown core • Identify and site new paddleboat house • Develop covered seating area as staging area for recreational boaters

Objective: Waterfront Park provides visitors with visual access to the water.

Actions:

• Install a cantilevered platform or pathway over the river • Study the feasibility of building a tower that would enable park visitors to take advantage of views of the waterfront, downtown, and Mount Hood • Improve and protect sight lines to the river from downtown • Explore the installation of artwork at terminating vistas, for instance, move the mast of the USS Oregon to the termination of Pine St. in the park • Extend the street grid into the park in a series of paved pathways leading to viewing platforms over the seawall

Recommendations: Access & Circulation

Goal: Improve connections to the park How accessible the park is to visitors was another frequently expressed concern. Twenty percent of online survey respondents said that difficulty in getting to the park affected the frequency of their visits. Access from adjacent neighborhoods is challenging, particularly due to the presence of Naito Parkway. When asked generally about Naito Parkway (“What would make Naito Parkway an attractive destination for both Portland residents and visitors?”) the vast majority of respondents chose to provide solutions which would make Naito Parkway less of a barrier to park access, such as the introduction of additional crosswalks and sidewalks, reduced speeds or lanes.

Objective: Park visitors can easily walk, bike, and roll to the park from Central City neighborhoods and bridges.

Actions: • Add crosswalks across Naito Parkway at the following intersections: • • • •

SW Columbia Street SW Morrison Street NW Couch Street NW Flanders Street

• Modify signalization to prioritize pedestrian movement across Naito • Study the feasibility of converting Yamhill Street into a pedestrian-only street from Naito Parkway to 1st Ave.

Crosswalks connecting to sidewalks in the park are non-existent in various locations along Naito Parkway, making for difficult access to the park from downtown.

• Improve connections between the downtown bicycle network and park paths by developing two major bicycle gateways into and out of the park from Oak and Stark Streets • Construct ramps, stairs, or other vertical connections to allow direct access from the bridges (Morrison, Burnside, Steel) into the park • Eliminate impediments to easy pedestrian and bicycle access to and from the bridges • Develop a better route for northbound commuter cyclists between the Naito/NW Davis intersection into the park and back onto Naito Parkway.

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RECOMMENDATIONS: ACCESS & CIRCULATION Objective: Park visitors can access the park easily via transit.

Separated Bicycle-Pedestrian Paths

S

Goal: Improve circulation within the park

hared-use paths in urban parks, such as Waterfront Park’s esplanade, tend to be popular places. As off-street paths, they are particularly attractive for cyclists of all abilities, including children. As a short-term measure, signage or markings could be introduced to help manage conflicts between modes by reminding users to proceed cautiously and courteously. However, signage alone is typically insufficient for managing conflict, whereas road markings can be more effective.

How park visitors move through the park is perceived as one of the most problematic aspects of the park. Resolving the conflict between pedestrians and cyclists moving along the Promenade by mode separation was the most frequently volunteered concern expressed in writein comments in the online survey.

Due to the path’s high volume, a longer-term and more comprehensive solution to pedestrian-bicycle conflicts in Waterfront Park would be the introduction of physically separated paths for each mode. Australian guidance (Queensland Department of Transport and Main Roads), for instance, recommends physically separated paths when the combined volumes of pedestrians and cyclists are greater than 300 per hour, a measure that Waterfront Park exceeds. According to Svensson, Jonsson and Hyden (2007), the most effective design is to use different path materials for the modes.

Objective: Park visitors can safely walk, roll, or cycle at various speeds with minimal conflicts between modes.

Several examples of physical separated paths can be found in Minneapolis, MN (along parts of the Grand Rounds Scenic Byway), along the Hudson River in New York City, and at Stanley Park in Vancouver, BC. In Portland, a physically separated path has been proposed for the South Waterfront Greenway, to which this path would eventually connect. Shared use paths should be designed to meet the accessibility requirements of the Americans with Disabilities Act.

Actions:

• Introduce transit service along on Naito Parkway and the waterfront • Study the feasibility of adding a seasonal circulating shuttle connecting the Waterfront with other downtown locations • Modify existing transit stop announcements (Yamhill District MAX station, Oak/SW 1st Ave. MAX Station, SW Madison/1st Ave, SW Main/2nd Ave) to call attention to the stops’ proximity to waterfront destinations

Actions:

• Create separated bicycle and pedestrian paths along or near the promenade • Add signage to improve safety and increase courtesy between users of different modes

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Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: ACCESS & CIRCULATION Great Ideas from Other Cities

Objective: Park visitors have multiple paths along which to move through the park.

Actions:

Minneapolis, Minnesota

G

rand Rounds Scenic Byway is a loop of over 50 miles that links a number of parks and lakes in the Minneapolis area. It passes through the downtown area and also connects many neighborhoods and diverse landscapes to its trail network.

There are physically separated paths for pedestrians, cyclists, and rollerbladers. It also has a cantilevered bridge, Guthrie’s Endless Bridge, that extends over the river. It provides views of the river and the St. Francis Falls below from both indoors and outdoors, an important consideration given Minneapolis’s climate.

Recommendations: Access & Circulation

• Improve pathways along the western edge of the park by completing the sidewalk network or installing additional paths within the park • Resolve path conflicts between the Portland Loos, trees, and potential pathways • Create a more inviting space for pedestrians through the use of vegetation and pedestrianscale lighting • Explore the feasibility of building a buffered two-way cycle track on the east side of Naito Parkway • Explore the feasibility of closing Naito Parkway on Sundays

Implementing Access & Circulation Recommendations In addition to federal and state funding, in the form of Regional Flexible Funds and the Statewide Transportation Improvement Program, local and private funding may be available for these projects, especially given their strong active transportation focus. Additional options include tax increment financing and the creation of a local improvement district, approaches used in other waterfront pathway projects in Portland, most notably the Eastbank Esplanade. Furthermore, non-profit organizations dedicated to promoting these issues may be able to provide either monetary or inkind support. Kaiser Permanente has been the main sponsor of Sunday Parkways, for instance.

Agencies supporting public health, from the Multnomah County Department of Health to the Department of Health and Human Services, may also be prospective funding partners.

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ACCESS & CIRCULATION: Goals and Objectives Goal: Improve park visitors’ ability to access the water.

Objective: Park visitors swim in the river and recreate by the water’s edge.

Objective: Residents and visitors are aware of the improved water quality of the Willamette.

Objective: Tom McCall Waterfront Park is a destination for watersports activity.

Objective: Waterfront Park provides visitors with visual access to the water.

Timeframe

Action

1-3 Years

11-20 Years

Ongoing

Remove rip-rap rock in selected areas to create an area conducive to swimming

X

PPR, private

Create a beach

X

PPR, private X

Provide a changing facility for beach visitors

PBOT, private

Launch an educational campaign to inform residents of water quality issues and other topics concerning the environmental health of the river and its flora and fauna

X

BES, private

Improve access to Hawthorne Bowl beach

X

PPR, private

Encourage a new boat rental facility near Hawthorne Bowl

X

BPS, PDC, private

Expand options for paddle boats, including beach access and at least one low dock near the downtown core

X

PPR, private

Identify and site new paddleboat house

X

BPS, private

Develop covered seating area as staging area for recreational boaters

X

PPR, tribal organizations

Install a cantilever platform or pathway over the river

X

PPR, private

Study the feasibility of building a tower that would enable park visitors to take advantage of views of the waterfront, downtown, and Mount Hood

X

PPR, private

Improve and protect sight lines to the river from downtown

X

BPS

Explore the installation of artwork at terminating vistas, for instance, move the mast of the USS Oregon to the termination of Pine St. in the park

X

PPR

Extend the street grid into the park in a series of paved pathways leading to viewing platforms over the seawall

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4-10 Years

Implementer(s) Related Planning (Lead in bold) Themes

X

PPR, PBOT

Downtown Portland Waterfront Activation Strategy | June 2014

ACCESS & CIRCULATION: Goals and Objectives

Goal: Improve connections to the park Objective: Park visitors can easily walk, bike, and roll to the park from Central City neighborhoods and bridges.

Objective: Park visitors can access the park easily via transit.

Action

Timeframe 1-3 Years

4-10 Years

X

PBOT

Modify signalization to prioritize pedestrian movement across Naito

X

PBOT

Study the feasibility of converting Yamhill St. into a pedestrianonly street from Naito Parkway to 1st Ave.

X

Improve connections between the downtown bicycle network and park paths by developing two major bicycle gateways into and out of the park from Oak and Stark Streets

PBOT, BPS

PBOT

X

Construct ramps, stairs, or other vertical connections to allow direct access from the bridges (Morrison, Burnside, Steel) into the park.

X

PBOT

Eliminate impediments to easy pedestrian and bicycle access to and from the bridges

X

PBOT

Develop a better route for northbound commuter cyclists between the Naito/NW Davis intersection into the park and back onto Naito Parkway.

X

PBOT

Introduce transit service along on Naito Parkway and the waterfront

X

TriMet, PBOT

Study the feasibility of adding a seasonal circulating shuttle connecting the Waterfront with other downtown locations

X

TriMet, PBOT

Modify existing transit stop announcements (Yamhill District MAX station, Oak/SW 1st Ave. MAX Station, SW Madison/1st Ave, SW Main/2nd Ave) to call attention to the stops’ proximity to waterfront destinations

X

TriMet

Create separated bicycle and pedestrian paths along or near the promenade

Objective: Park visitors can safely walk, roll, or cycle at various speeds with minimal conflicts between modes.

Add signage to improve safety and increase courtesy between users of different modes

X

PPR, PBOT

PPR, PBOT

X

Improve pathways along the western edge of the park by completing the sidewalk network or installing additional paths within the park

X

PPR, PBOT

Resolve path conflicts between the Portland Loos, trees, and potential pathways

X

PPR, PBOT

Create a more inviting space for pedestrians through the use of vegetation and pedestrian-scale lighting

X

PPR, PBOT

Explore the feasibility of building a buffered two-way cycle track on the east side of Naito Parkway Explore the feasibility of closing Naito Parkway on Sundays

Recommendations: Access & Circulation

Ongoing

Add crosswalks across Naito Parkway at all intersections: SW Columbia, SW Yamhill, SW Morrison, SW Stark, SW Oak, NW Couch, NW Flanders

Goal: Improve circulation within the park

Objective: Park visitors have multiple paths along which to move through the park.

11-20 Years

Implementer(s) Related Planning (Lead in bold) Themes

X X

PBOT PBOT, PPR

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7.3 RECOMMENDATIONS:

COMMERCIAL & RECREATIONAL BOATING

Portland lives, works and plays around the Willamette River.

As “River City,� the waterfront should serve to provide emotional and physical linkages between downtown and the river. Boaters of all types, including recreationalists and commercial operators, desire greater access to and from Waterfront Park; their presence would strengthen the connection between city and river.

73

RECOMMENDATIONS: COMMERCIAL & RECREATIONAL BOATING Commercial & Recreational Boating Challenges • Portland’s zoning code currently does not allow overnight mooring as an outright use, forcing commercial boat operators into costly conditional use permits.

• Services needed for commercial boating are not available in central reach and limited opportunity exists for development of these services.

• There is limited opportunity for recreational boaters to access Waterfront Park.

• Current docks are either poorly maintained and unusable (Ankeny Dock) or not located strategically in areas with ready access to downtown.

Goal: Utilize the river as a transportation option Traditionally used in Portland for the movement of freight, the Willamette River can act as a key north-south circulation route for residents and visitors, especially between residential, employment, and cultural clusters centered around the waterfront. A number of key districts are developed or in the process of developing into vibrant destinations along both sides of the river.

Connections via the river will support the needs of a growing population and make Waterfront Park a more vibrant and accessible place.

Objective: People use the river as a travel option.

Actions: • Create a long-term docks plan • Commision a feasibility study of a potential Lake Oswego-Downtown Portland commuter ferry • Develop a governance and management structure for long-term regional on-water transit systems Objective: Within the central reach, people make short connecting trips across the river by water transit.

The S.S. Legacy, of the Un-Cruise Adventures regional cruise line, moored at the downtown seawall.

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Great Ideas from Past Plans

“C

reate a river taxi system with stops at public attractions and existing piers. The taxi system could be modeled on the existing False Creek taxis of Vancouver, B.C. It could link existing and proposed riverfront attractions within the Central City and adjacent areas with a scheduled water transportation network. These taxis may also be used by commuters. Initial use would primarily be for recreation and Portland visitors.”

-Central City Plan, 1988

Actions: • Study feasibility and demand for a crossriver, seasonal ferry • Identify target areas underserved by bridge and road connections for longerterm commuter potential

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: COMMERCIAL & RECREATIONAL BOATING Great Ideas from Other Cities

Regional Cruise Lines

Norfolk, Virginia

H

ampton Roads Transit connects the employment center and amenities of the Norfolk downtown waterfront with the cross-river neighbor of Portsmouth via the Elizabeth River Ferry. The transit agency operates three 150-person ferries with service every thirty minutes. During the summer months, more than 40,000 monthly riders, many of them visiting the Norfolk Waterfront Market or attending a baseball game, relax and enjoy the river. Hampton Roads Transit subsidizes ferry ridership at about 80%, similar to TriMet’s subsidy of 75%. The Elizabeth River Ferry is a strong placemaking and economic development tool for the region, supporting cultural and civic activities along its riverfront.

A

number of regional cruise lines currently use Portland as a port of call but homeport in Vancouver Washington. Cruise companies have indicated that they would like to be in Portland but that a number of barriers exist. The needs of a regional cruise company to operate viably in the city include: a zoning change to allow overnight mooring as an outright use, a comfortable and covered seating area with retail services for guests, a place for permanent docking, and access to potable water, blackwater, shorepower and solid waste disposal. While Waterfront Park could support short-term passenger loading and unloading, a permanent docking space with access to utilities and shop services would conflict with the everyday use and activity in the park. It is therefore recommended that permanent docking be located at another nearby location.

One potential spot for a permanent cruise ship home is the dock next to Centennial Mills. While Watermark supports regional cruise ships in Portland, it is not listed as an action for two reasons: the City is already tackling some of these challenges, and the necessary implementation actions fall outside of the scope of this project.

Recommendations: Commercial & Recreational Boating

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RECOMMENDATIONS: COMMERCIAL & RECREATIONAL BOATING Goal: Enhance river recreation Use of the river as a recreational amenity is growing, and there is a stated desire for greater access to and from Waterfront Park. As the interface between the river and downtown, Waterfront Park should act as a worthy transition zone, with services and amenities for recreationalists.

Objective: Mooring, docks and services attract on-water recreationalists to Waterfront Park.

Ankeny Dock in its prime, circa 1980s

Actions: • Install permanent mooring buoys in Hawthorne Bowl • Identify dock for downtown motor boat access • Expand options for paddle boats, including beach access and at least one low dock near the downtown core • Identify and site new paddle boat house • Develop covered seating and staging area that serves commercial and recreational boaters • Improve access to Hawthorne Bowl beach • Encourage a new boat rental facility near Hawthorne Bowl • Install changing rooms/bathrooms near areas of direct river access

Objective: Paddlers, swimmers, and boaters use the river without conflict.

Actions: • Promote boater education cards for paddle boats • Create separate zones for swimming and boat mooring in Hawthorne Bowl • Require boat rental safety education class Implementing Boating Recommendations There are a number of opportunities for both private and public financing for commercial and recreational boating. However, river transportation options remain expensive relative to land-based systems, especially from an operations standpoint.

A shorter cross-river seasonal or tourist route is more affordable but does not have the same opportunity for regional and federal funding that a commuter-based system would have. A private partnership may be necessary to leverage public funding of initial capital investments for private operations and management with the opportunity for revenue from fares and advertising.

A variety of boats and users can be found on the Willamette River in the downtown area.

76

Downtown Portland Waterfront Activation Strategy | June 2014

COMMERCIAL & RECREATIONAL BOATING:

Goals and Objectives

Goal: Utilize the river as a transportation option Objective: People use the river as a travel option.

Objective: Within the central reach, people make short connecting trips across the river by water transit.

Action Create a long-term docks plan

Objective: Mooring, docks and services attract on-water recreationalists to Waterfront Park.

1-3 Years X

11-20 Years

Ongoing

BPS, PPR X

BPS, Metro

Develop governance and management structure for long-term regional on-water transit systems

X

BPS, Metro, TriMet, PBOT

Study feasibility and demand for cross-river, seasonal ferry

X

Identify target areas underserved by bridge and road connections for longer term commuter potential

PPR, private X

BPS, PBOT

Identify dock for downtown motor boat access

X

BPS

Expand options for paddle boats, including beach access and at least one low dock near the downtown core

X

BPS, PPR, private

Identify and site new paddle boat house

X

BPS, private

Develop covered seating and staging area that serves commercial and recreational boaters

X

PPR, private

Improve access to Hawthorne Bowl beach

X

X

Install changing rooms/bathrooms near areas of direct river access 3-5 years

PPR X

Encourage a new boat rental facility near Hawthorne Bowl

Objective: Paddlers, swimmers, and boaters use the river without conflict.

4-10 Years

Implementer(s) Related Planning (Lead in bold) Themes

Commision a feasibility study of a potential Lake OswegoDowntown Portland commuter ferry

Install permanent mooring buoys in Hawthorne Bowl

Goal: Enhance river recreation

Timeframe

X

BPS, PDC, private PPR

Promote boater education cards for paddle boats

X

Oregon State Marine Board

Create separate zones for swimming and boat mooring in Hawthorne Bowl

X

PPR

Require boat rental safety education class

Recommendations: Commercial & Recreational Boating

X

Oregon State Marine Board

77

7.4 RECOMMENDATIONS:

ECONOMIC DEVELOPMENT

There is significant unrealized potential, and likely substantial foregone revenue, as the result of underdevelopment in the park and surrounding blocks. Watermark Planning recommends implementing inexpensive short-term measures to expand commercial activity in the park as well as more strategic long-term efforts to make the area a commercial destination.

79

RECOMMENDATIONS: ECONOMIC DEVELOPMENT Economic Development Challenges • Naito Parkway and the 1st through 3rd Avenue blocks lack vibrancy and activity, particularly during evenings and weekends.

• Waterfront Park offers very little in the way of food, drink, and other commercial attractions.

• The sparseness of commercial activities in and around the park limits the area’s functionality as well as its attractiveness to a more diverse range of users.

Goal: Expand commercial activities along Naito Parkway Naito Parkway and the surrounding blocks are currently characterized by a lack of vibrancy and activity, particularly during evenings and weekends. If anything, this area is seen as a dead zone between the waterfront and downtown, where parking lots dominate the landscape. Bringing new uses and users to this area through expanded commercial and residential development would serve to humanize and activate the landscape while reducing the popular perception of Naito Parkway as a pedestrian barrier.

Objective: Naito Parkway is a vibrant, pedestrian-friendly corridor that features a variety of active evening and weekend uses complementing Tom McCall Waterfront Park.

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Actions:

• Establish car-free Sunday Parkways on Naito Parkway along Waterfront Park • Recruit property owner participation for a program to use vacant spaces and lots for pop-up activities (food, art, entertainment) • Study redevelopment incentives to encourage new commercial and residential development along Naito Parkway • Explore siting options for human-powered watercraft rentals along Naito Parkway • Encourage redevelopment with key public attractions and mixed uses at the bridgeheads • Implement incentives that encourage new development in the Naito Parkway/ riverfront area, including targeted clusters of commercial uses • Incentivize workforce housing development along SW Naito Parkway and in the blocks immediately adjacent to the waterfront

Objective: A revenue-generating, all-weather skatepark and public plaza at the base of the Steel Bridge serves as a world-class competition facility and a regional attraction.

Actions:

• Decommission the auto-access ramp leading from southbound Naito Parkway onto the eastbound portion of the Steel Bridge • Engage the Old Town/Chinatown community to sustain support for the project • Develop a financial framework to fund the project, including establishing a strategy for operations and maintenance • Build a skatepark

Great Ideas from Past Plans

“I

t is r ecommended that [Naito Parkw ay] be conve r ted into a t r ee-lined boule var d...in or de r to make it [f eel like] a par t of the park... This will create st rong ties between the Water front and the Core and a visually att ractive foreg round for the whole downtown.

The boulevard t reatment will pro vide a generous buffer for proper ties along the west side of [Naito Parkway] thereby encouraging rehabilitation and inf ill development.”

-Downtown Waterfront Park Final Report, 1975

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: ECONOMIC DEVELOPMENT Goal: Expand commercial activities in the park Although Saturday Market attracts visitors to the park from throughout the region and the world, the park in general suffers from a lack of attractions and services that encourage users of all ages to do much more than merely pass through. Commercial activity clusters should be designated at strategic locations in the park. Given the rainy climate of Portland and safety concerns in the park, the inactive spaces under the bridges and at the bridgeheads should be programmed for active and commercial uses; these spaces would encourage users to sit, relax, purchase food and beverages, get their feet wet, swim, paddle, embark on regional cruises, and truly enjoy the unique experience of being on Portland’s waterfront while also providing opportunities to take shelter from the rain when needed.

Objective: Park users can rent recreational equipment and purchase refreshments in the park in locations other than Saturday Market.

Actions:

• Designate commercial activity clusters within the park • Designate loading-zones to serve commercial activity clusters in the park • Explore and prioritize alternate commercial uses for the old Visitors Information Center • Create a hardscaped surface in the park • Encourage vendors to operate in the park on a regular basis

Pershing Square Cafe, New York City

• Modify the zoning code to allow for smallscale retail uses in the park without conditional use permits • Develop commercial activity clusters in the park, with design standards

Underutilized space underneath the Morrison Bridge (shown here) and/or Hawthorne Bridge may be used for commercial uses such as a cafe.

Objective: The space under the Hawthorne and/or Morrison bridges is used for temporary or permanent commercial uses including food/drink establishments.

Action:

• Conduct feasibility and engineering study for siting a cafe or other retail use under one of the bridges

Mobile food vendors should be encouraged to operate regularly at Waterfront Park.

Recommendations: Economic Development

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RECOMMENDATIONS: ECONOMIC DEVELOPMENT Goal: Develop the waterfront and adjacent blocks as a commercial destination With the exception of events and Saturday Market, there are currently few attractions in the park that draw users from downtown and nearby transit stops.

Once visitors are in the park, there is little in the way of information to help them learn about and navigate nearby amenities. Thoughtful and intentional programming, in conjunction with an expanded retail core and a broad mix of commercial activity at the street level, could serve to better connect Portland’s downtown to its waterfront, with the ultimate intention of establishing this area as a unique commercialrecreational destination.

Objective: Amenities and services support waterfront commercial activity and draw residents and visitors to the area.

Actions:

• Create a visitor information booth in the park to direct people to businesses, services, and activities in the vicinity of the waterfront • Locate pop-up activities, services, and events on the proposed hardscaped surface in the park • Pair temporary and pop-up uses in the park and along Naito with Sunday Parkways • Allow events to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets”), and/or adjacent Festival Streets in Old Town/Chinatown • Expand the downtown retail core on Morrison and Yamhill streets to the Waterfront • Encourage a broad mix of retail opportunities at the street level

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What is a “pop-up”?

A

pop-up is a retail venue that is temporary. In this case, it could be an ice cream cart, a tamale stand, or an art sale. It could even serve as a demonstration area for local athletic and outdoor industry companies to provide rentals, testing, and sales of their apparel and equipment.

Tactical Urbanism 2 by The Street Plans Collaborative describes the appeal of pop-ups in the following way: “Main streets with vacant storefronts, oversized parking lots, and underutilized public spaces are increasingly being used as local incubators for a seemingly endless number of temporary to permanent commercial and community uses. For example, in Oakland, CA an urban planner and restaurant owner are collaborating in producing Popuphood, a three-block stretch of short-term lease pop-up stores intended to revitalize the downtown through new business incubation. In this way, the pop-up trend reflects the new economy where aligning the interests of property owners and local entrepreneurs is happening in a more nimble and creative way. Finally, the interest and public exposure pop-ups generate by way of their temporary nature provide a powerful tool for sparking long-term change. Successful popup stores often earn the right to stay, creating a win-win for the property owner, occupant, and neighborhood.”

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: ECONOMIC DEVELOPMENT Incentivizing Workforce Housing Development

G

iven that adding to the stock of workforce housing in the Central City is a stated policy goal of CC2035, Watermark recommends that the development of workforce housing targeted at a specific income threshold be incentivized through: • SDC Waivers • Property tax exemptions for structural improvements to multi-family properties that are in line with standard loan terms (15-year minimum) • Provision of lower cost construction capital and lower cost long-term financing to developers of workforce housing through financial tools such as tax-exempt bonds • Establishment of a housing trust fund or use of TIF funds (independent of the affordable housing set-aside) to finance workforce housing development in the Central City • Developer incentives, such as density bonuses, height variances, and allowing projects with a workforce component to be accelerated through the permitting and design review processes • Other tools discovered through the redevelopment incentive study that have been proven to be successful in incentivizing workforce housing development

Implementing Economic Development Recommendations Commercial development is largely a private sector-led process, although in the case of difficultto-develop areas and properties the City must take a lead on removing barriers and providing incentives to encourage redevelopment. In terms of economic development in and around Waterfront Park, the City will play a key role in facilitating public-private partnerships. PDC’s role is to create programs and flexible funding tools that serve to incentivize redevelopment of workforce housing and new commercial uses in and around Waterfront Park. It is suggested that remaining funding gaps, such as for the construction of the skatepark, be filled through a combination of crowdfunding and corporate sponsorship from Portland-based firms with ties to the action sports market.

It is recommended that the income levels to which this housing is targeted be explicitly linked to any potential development incentives provided to incentivize workforce housing. In addition, redevelopment incentives that have been proven to be successful in developing workforce housing elsewhere should be studied and applied to Portland.

Recommendations: Economic Development

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ECONOMIC DEVELOPMENT: Goals and Objectives

Goal: Expand commercial activities along Naito Parkway Objective: Naito Parkway is a vibrant, pedestrian-friendly corridor that features a variety of active evening and weekend uses complementing Tom McCall Waterfront Park.

Objective: A revenue-generating, all-weather skatepark and public plaza at the base of the Steel Bridge serves as a world-class competition facility and a regional attraction.

Action

1-3 Years

4-10 Years

11-20 Years

Ongoing

Implementer(s) Related Planning (Lead in bold) Themes

Establish car-free Sunday Parkways on Naito Parkway along Waterfront Park

X

PBOT, BPS

Recruit property owner participation for a program to use vacant spaces and lots for pop-up activities (food, art, entertainment)

X

PDC, private

Study redevelopment incentives to encourage new commercial and residential development along Naito Parkway Explore siting options for human-powered watercraft rentals along Naito Parkway

X

X

Encourage redevelopment with key public attractions and mixed uses at the bridgeheads

BPS, PDC

PDC, private

BPS, PDC, private, Multnomah County

X

Implement incentives that encourage new development in the Naito Parkway/riverfront area, including targeted clusters of commercial uses

X

PDC, BPS

Incentivize workforce housing development along SW Naito Parkway and in the blocks immediately adjacent to the waterfront

X

PDC, BPS

Decommission the auto-access ramp leading from southbound Naito Parkway onto the eastbound portion of the Steel Bridge

X

PBOT

Engage the Old Town/Chinatown community to sustain support for the project Develop a financial framework to fund the project, including establishing a strategy for operations and maintenance

Build a skatepark

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Timeframe

X

X

BPS, OTCT Community Association PPR

X

PPR, private

Downtown Portland Waterfront Activation Strategy | June 2014

ECONOMIC DEVELOPMENT: Goals and Objectives

Goal: Expand commercial activities in the park Objective: Park users can rent recreational equipment and purchase refreshments in the park in locations other than Saturday Market.

Objective: The space under the Hawthorne and/or Morrison bridges is used for temporary or permanent commercial uses including food/ drink establishments.

Goal: Develop the waterfront and adjacent blocks as a commercial destination Objective: Amenities and services support waterfront commercial activity and draw residents and visitors to the area.

Timeframe Action

1-3 Years

4-10 Years

11-20 Years

Ongoing

Implementer(s) Related Planning (Lead in bold) Themes

Designate commercial activity clusters within the park

X

PPR, BPS

Designate loading-zones to serve commercial activity clusters in the park

X

PBOT, BPS, PPR

X

PPR

Explore and prioritize alternate commercial uses for the old Visitors Information Center

PPR, event organizations

X

Create a hardscaped surface in the park

X

Encourage vendors to operate in the park on a regular basis

BPS, PPR, private

Modify the zoning code to allow for small-scale retail uses in the park without conditional use permits

X

BPS

Develop commercial activity clusters in the park, with design standards

X

PPR, BPS

Conduct feasibility and engineering study for siting a cafe or other retail use under one of the bridges

X

BPS, Multnomah County

Create a visitor information booth in the park to direct people to businesses, services, and activities in the vicinity of the waterfront

X

Private

Locate pop-up activities, services, and events on the proposed hardscaped surface in the park

X

PDC, private

Pair temporary and pop-up uses in the park and along Naito with Sunday Parkways

X

PDC, PBOT, private

Allow events to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets�), and/or adjacent Festival Streets in Old Town/Chinatown

X

PBOT

Expand the downtown retail core on Morrison and Yamhill streets to the Waterfront Encourage a broad mix of retail opportunities at the street level

Recommendations: Economic Development

X X

PDC, PBOT, private BPS, PDC, private

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7.5 RECOMMENDATIONS:

NATURAL ENVIRONMENT

Waterfront Park is central to Portland’s green spaces.

Native vegetative plantings in the park will create habitat, especially for avian and pollinator species, and connect visitors to the park’s natural history and context.

87

RECOMMENDATIONS: NATURAL ENVIRONMENT Natural Environment Challenges • There is limited natural habitat in the park and in the river to support wildlife and connect users to nature.

• The public has few opportunities within the park to learn about and appreciate the park’s environmental context.

• Visitor experiences in the Hawthorne Bowl suffer from an abundance of resident geese and their excrement.

Great Ideas from Past Plans

Goal: Enhance in-park and river habitat While not intended to function primarily as a natural open space (such as Forest Park), the waterfront nevertheless should play a role in connecting fragmented urban habitat. The park can also fulfill a need for respite from the fast pace of urban living while connecting users to natural systems, history and context.

Objective: Wildlife is able to travel along natural corridors to and through Waterfront Park.

Sites for Native Vegetation

Japanese American Historical Plaza

Burnside Bridge

Ankeny Plaza

Actions:

• Install three pollinator gardens using native plants in existing planters • Study park tree habitat and habitat needs for native avian species • Identify spaces for clusters of native vegetation and habitat • Design and install natural contemplative space

Morrison Bridge

Objective: Salmonids utilize shallow water habitat in the Hawthorne Bowl.

Actions:

“E

stablish ecologically viable corridors for migratory fish and birds and other wildlife through habitat protection and restoration.”

-River Renaissance Strategy, 2004

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• Prioritize salmon habitat within the Bowl • Identify the best locations for in-river habitat, weighing benefit to salmon, balance with human access, feasibility, and maintenance • Within Master Park Plan, address separation of salmon and human uses

Salmon Street Springs Fountain

Hawthorne Bridge

Hawthorne Bowl

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: NATURAL ENVIRONMENT Goal: Reduce the impact of migratory and resident geese on the use and access of the park

Great Ideas from Other Cities

Pollinator habitat plantings with educational signage

Seattle, Washington

S

eattle recently implemented a low-cost program to create linear pollinatorfriendly gardens connecting open spaces.

A non-profit is working with homeowners along specified corridors in a successful campaign to reduce habitat fragmentation and provide cost-effective solutions to urban habitat loss by focusing on underused strip planters. The program provides both technical and financial assistance to homeowners participating in the program and homeowners are responsible for maintenance. The program offers a number of opportunities for public involvement, including working with local institutions (University of Washington, Woodland Park Zoo) for assessment and monitoring.

Recommendations: Natural Environment

Goal: Engage the park visitors through educational displays and interactive science Waterfront Park, as one of the most visited open spaces in the region, offers a unique opportunity to connect people with natural systems. The park’s proximity to key regional educational institutions presents an opportunity for partnerships and formalized interactive and experiential programs.

The ubiquitous and year-round presence of geese was often cited as a barrier to visitors’ access, use, and enjoyment of the park, especially in the Hawthorne Bowl. The large, open grassy elements of the park attract normally migratory geese that instead stay and forego their seasonal journey in exchange for the security of a consistent food source.

Objective: Hawthorne Bowl is clean and geese don’t interfere with human use.

Actions:

• Install terracing in the Bowl that blocks goose sightlines and breaks up the large open spaces that geese favor.

• Install linear shrubs or hedges perpendicular to terraces to scare away geese fearful of potential predators.

Objective: Residents and visitors are informed about and appreciative of the environmental context of the park.

Actions:

• Develop interactive art installations or permanent exhibits that educate and connect people to natural systems • Partner with local institutions to develop formal programs, geared toward youth and families in particular

Terraced lawn at Curtis Hixon Waterfront Park, Tampa, Florida

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RECOMMENDATIONS: NATURAL ENVIRONMENT Implementing Natural Environment Recommendations

Poles installed at specific locations within Waterfront Park may provide new habitat along the Willamette River for native avian species including ospreys.

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The Hawthorne Bowl provides the only opportunity within the boundaries of Waterfront Park for shallow water fish habitat.

The proposed actions are a mix of low-cost solutions and larger capital investments. Pollinator gardens are inexpensive, and a number of poorly maintained planters exist in the park that are ripe for small-scale interventions. A number of state and federal grants exist for habitat restoration, especially for riparian and riverine projects. The development of educational programs is prime for partnerships with local organizations and institutions and offers an opportunity for private sponsorship. A project to terrace the Bowl does not have the same access to environmental funding mechanisms. However, it would be able to take advantage of national placemaking grants and would benefit from the involvement of the Parks Foundation in fundraising.

Downtown Portland Waterfront Activation Strategy | June 2014

NATURAL ENVIRONMENT: Goals and Objectives

Goal: Enhance in-park and river habitat Objective: Wildlife is able to travel along natural corridors to and through Waterfront Park.

Action Install three pollinator gardens using native plants in existing planters

Timeframe 1-3 Years

4-10 Years

11-20 Years

X

PPR

Study park tree habitat and native avian species habitat needs

X

PPR, BES, Audubon

Identify spaces for clusters of native vegetation and habitat

X

PPR X

Design and install natural contemplative space

Goal: Engage the park visitors through educational displays and interactive science Objective: Residents and visitors are informed about and appreciative of the environmental context of the park.

Goal: Reduce the impact of migratory and resident geese on the use and access of the park Objective: Hawthorne Bowl is clean and geese don’t interfere with human use.

PPR X

Prioritize salmon habitat within the Bowl Objective: Salmonids utilize shallow water habitat in the Hawthorne Bowl.

Ongoing

Implementer(s) Related Planning (Lead in bold) Themes

PPR, BPS

Identify the best locations of in-river habitat, weighing benefit to salmon, balance with human access, feasibility, and maintenance

X

PPR

Address separation of salmon and human uses within park master planning process

X

PPR

Develop interactive art installations or permanent exhibits that educate and connect people to natural systems

X

PPR

Partner with local institutions to develop formal programs, in particular geared toward youth and families

X

PPR, private

Install terracing in the Bowl that blocks goose sightlines and breaks up the large open spaces that geese favor.

X

PPR

Install linear shrubs or hedges perpendicular to terraces to scare away geese fearful of potential predators.

X

PPR

Recommendations: Natural Environment

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7.6 RECOMMENDATIONS:

EVENTS

Large events and festivals in Waterfront Park generate a number of negative impacts that are frequently borne by other park users. Watermark Planning recommends that the scope of events, both in terms of time and physical space, be balanced with the needs of park users and event attendees.

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RECOMMENDATIONS: EVENTS Great Ideas from Other Cities

C

olumbus, Ohio recently went through a downtown revitalization focused on their riverfront. The regional development corporation intentionally developed a system that opens park spaces to over 200 programmed events a year, most of which last only a day. By focusing on shorter events, Columbus is able to provide events that represent and engage a larger share of the regional population. The city actively recruits and subsidizes events in the waterfront parks that appeal to all audiences. The key element of the program is a fee schedule that rises dramatically after three days, thereby reducing the number of longterm events and retaining most of the park for everyday use.

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Portland Rose Festival at Waterfront Park

Event Challenges • There is an ongoing conflict between the presence of ticketed events in Waterfront Park and public use of the park, particularly during summer months.

Goal: Manage event scope to balance the needs of park users and event attendees The park’s use as a venue for hosting restrictedaccess events has ultimately served to limit the overall functionality and appeal of the downtown waterfront, particularly during summer months. Watermark Planning recommends limiting event times and managing event scope through the establishment of a citywide events and festival plan so as to strike a more productive balance between restricted and public uses of the waterfront.

Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS: EVENTS Objective: The number of days of unobstructed public park use during prime weather months is increased.

Actions:

• Limit event length, including setup and takedown, by establishing a standard time limit • Establish escalating fee schedule for events that exceed this standard time limit

Objective: Event uses enliven the park without negatively impacting other users.

Actions:

• Explore alternate locations for ticketed events • Minimize the amount of space dedicated to fenced events • Raise event fees to cover the full costs of park maintenance • Create a hardscaped surface in the park that can be used for smaller events

Objective: A citywide plan for events and festivals coordinates activities in public spaces, including Tom McCall Waterfront Park.

Actions:

• Petition a third-party net economic impact analysis of events and festivals in the city to provide a clear understanding of economic impact and set a baseline for evaluating tradeoffs • Complete a strategic plan for events to help lay out the future of programming in Portland’s public spaces and provide greater certainty to event operators Kenton Street Fair

Objective: Events strengthen the connection between Waterfront Park and adjacent neighborhoods, especially Downtown and Old Town/Chinatown.

Action: • Allow events to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets”), and/or adjacent Festival Streets in Old Town/Chinatown

Recommendations: Events

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EVENTS: Goals and Objectives

Timeframe

Action

1-3 Years

4-10 Years

11-20 Years

Ongoing

Implementer(s) Related Planning (Lead in bold) Themes

Goal: Manage event scope to balance the needs of park users and event attendees

Limit event length, including setup and takedown, by establishing a standard time limit

X

PPR

Objective: The number of days of unobstructed public park use during prime weather months is increased.

Establish escalating fee schedule for events that exceed this standard time limit

X

PPR

X

Explore alternate locations for ticketed events

PPR, BPS

X

Minimize the amount of space dedicated to fenced events

PPR

Objective: Event uses enliven the park without negatively impacting other users.

X

Raise event fees to cover the full costs of park maintenance Create a hardscaped surface in the park that can be used for smaller events Objective: Events strengthen the connection between Waterfront Park and adjacent neighborhoods, especially Downtown and Old Town/Chinatown.

Objective: A citywide plan for events and festivals coordinates activities in public spaces, including Tom McCall Waterfront Park.

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PPR

X

Allow events to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets”), and/or adjacent Festival Streets in Old Town/Chinatown

X

Petition a third-party net economic impact analysis of events and festivals in the city to provide a clear understanding of economic impact and set a baseline for evaluating tradeoffs Complete a strategic plan for events to help lay out the future of programming in Portland’s public spaces and provide greater certainty to event operators

X

PPR, event organizations, private

PBOT

BPS, PPR

X

PPR, BPS

Downtown Portland Waterfront Activation Strategy | June 2014

7.7 RECOMMENDATIONS IN PLACE: HAWTHORNE BOWL & STEEL BRIDGE

Developing the park’s bookends - the Steel Bridge teardrop and the Hawthorne Bowl - would create centers of activity at the north and south ends of the park, giving people a reason to walk the length of the park and providing visual termini worthy of a true regional destination.

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RECOMMENDATIONS IN PLACE: HAWTHORNE BOWL & STEEL BRIDGE

The Hawthorne Bowl

T

h e Hawthorne Bowl, marking the southern terminus of Waterfront Park, is one of the most underutilized spaces in the park and as such affords one of the best opportunities for design and redevelopment as a dynamic space. The natural amphitheater of the bowl is a considerable amenity, offering the only direct access to the river and providing some variety to the otherwise flat park.

Access to the water, however, is restricted by a poorly maintained cobbled pathway and a large amount of rip-rap rock between the grassy amphitheater and the beach. Improving this access by removing some of the extraneous rocks, redesigning the lower pathway and building an accessible pathway to the beach will immediately encourage access to and from the river.

Public and stakeholder feedback pointed towards the Bowl as a potential center of activity. Recommendations seek to create an interesting and comfortable space that can be used for events such as performance art or more daily uses such as picnics by the river. Terracing the Bowl complements the topography, breaks up the open grassy space preferred by geese, and provides seating with visual connections to the river. Some cities employ temporary or multipurpose floating stages that can be used for motorboat mooring or swimming.

The Bowl offers one of the best opportunities in the park to balance a number of environmental challenges through design. Swimmers, boaters and salmon will need separated zones in the shallow water cove. The manicured, terraced lawn can be visually and functionally enhanced by more natural plantings around the edges.

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Downtown Portland Waterfront Activation Strategy | June 2014

RECOMMENDATIONS IN PLACE: HAWTHORNE BOWL & STEEL BRIDGE

Steel Bridge Skatepark

W

hile many other recommendations are of a general nature, there are some compelling reasons to consider a more concrete proposal for a specific site in the vicinity of Waterfront Park. Watermark Planning recommends that a skatepark be sited at the base of Steel Bridge.

A skatepark objectives:

on

this

site

would

serve

multiple

• It would attract positive day- and night-time uses and users of all ages to an area that is currently plagued by crime and safety concerns; • The proposed design would extend new connections from Old Town/Chinatown into the park and, additionally, provide space for a significant public plaza; • It would provide programming relevant and attractive to youth in the park and downtown; • It would serve as the crown jewel in the city’s skatepark system, with the potential to generate revenue and serve as a regional attraction by hosting world-class competitions; • A feasibility study for decommissioning the off-ramp has been conducted by PBOT, with the conclusion that the impact of doing so would be minimal. An extensive plan related to the park’s design, engineering, and construction has already been drafted.

The Steel Bridge skatepark proposal has garnered significant support from the Old Town/Chinatown community, and much of the groundwork has already been laid. Watermark Planning would like to take the next step in the process by recommending that this project move forward.

Recommendations in Place: Hawthorne Bowl and Steel Bridge

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8 MOVING FORWARD: A STRATEGIC FRAMEWORK

Watermark Planning strongly recommends that a private nonprofit entity be created to plan, coordinate, implement, and manage waterfront projects within the Central Reach of the Willamette River.

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MOVING FORWARD: A STRATEGIC FRAMEWORK Watermark Planning strongly recommends that a private non-profit entity be created to plan, coordinate, implement, and manage waterfront projects within the Central Reach of the Willamette River.

Benefits of a Non-Profit Waterfront Corporation to the City of Portland • The creation of a long-term waterfront vision and a phased implementation plan can buffer against shifting political priorities.

• An organization dedicated to the waterfront would prioritize obtaining funding for projects as a cornerstone of its mission.

• This organization would provide additional capacity to manage the funding of everyday maintenance and capital projects on Portland’s Central City waterfront.

• Portland Parks and Recreation (PPR) would be free to focus on public space deficiencies in other areas of the city.

• Additional activities arising from the organization’s management of the park could provide an additional revenue stream for PPR.

The Need for a Non-Profit Although there have been many great ideas for improving Portland’s waterfront over the past several decades, the majority have not been implemented. Portland’s weak mayoral system lends itself to a political climate wherein it is

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immensely difficult to implement long-term plans and visions over time. Political realities, coupled with the changing composition of leadership, dictate that policy direction and priorities shift with every new administration. Projects in and around the Willamette River’s Central Reach are often long-term and require insulation from these political cycles. For these reasons, a private nonprofit entity should be created to plan, coordinate, implement, and manage waterfront projects within the Central Reach of the Willamette River. This proposed non-profit entity will be a keeper of and champion for the city’s waterfront vision over time.

Past Calls for a Non-Profit Corporation for Waterfront Park The idea of creating a non-profit entity to manage Portland’s waterfront vision is not a new one.

The 2003 Waterfront Park Master Plan suggested establishing a permanent entity to work with Portland Parks and Recreation to develop a management plan, provide overall management of the park’s operations, create and apply event guidelines, and ensure that the goals of the Master Plan continue to be fulfilled over time. The 2004 River Renaissance Strategy called for the creation of an outside organization to manage the plan’s vision. Watermark Planning believes that now is the time to implement these ideas not just for the park but for the entire Central Reach.

Why the Central Reach?

Waterfront Planning recommends that a future non-profit entity focus on waterfront projects throughout the Central Reach. This geographic scope would ensure that waterfront projects in and around Portland’s downtown are planned, implemented, and operated in a consistent and efficient manner. For instance, Central Reachwide design guidelines could ensure that all new development within the organization’s area of influence serves to enhance the Willamette River and protect important resources, including views, habitat, and public open spaces.

Successful U.S. Waterfront Management Structures Other cities that have created non-profit corporations or other entities to plan, coordinate, and implement successful waterfront projects include Pittsburgh, Pennsylvania; Louisville, Kentucky; Columbus, Ohio; and Boston, Massachusetts. Each of these organizations focuses on harnessing private dollars to finance largescale public improvements. An example from Pittsburgh is Riverlife, a non-profit, public-private partnership organization, whose task was to manage the long-term planning and development of Pittsburgh’s riverfronts. Riverlife’s efforts have led to award-winning and successful riverfront developments. In Louisville, community leaders sought to create an entity that would be insulated from electoral politics and therefore free to enact

Downtown Portland Waterfront Activation Strategy | June 2014

MOVING FORWARD: A STRATEGIC FRAMEWORK A Model Non-Profit Entity

Pittsburgh, Pennsylvania

“R

iverlife’s mission is simple: To reclaim, restore and promote Pittsburgh’s riverfronts as the environmental, recreational, cultural and economic hub for the people of this region and our visitors.”

“Riverlife (formerly Riverlife Task Force) is a public-private partnership established in 1999 to guide and advocate for the redevelopment of Pittsburgh’s riverfronts. Riverlife works to reconnect Pittsburgh with its rivers by bringing recreation, ecological restoration and economic opportunity back to our waterfronts.”

Moving Forward: A Strategic Framework

a long-term community vision for the revitalization of Louisville’s riverfront. The Louisville Waterfront Development Corporation has managed downtown riverfront revitalization efforts since 1986, developing an 80-acre waterfront park that has transformed the city’s downtown. Columbus utilizes its regional development corporation to tackle especially challenging projects, focusing on projects that require multi-agency coordination or levels of capital investment beyond the capacity of the city. For the purposes of its riverfront renewal, the city created a short-term nonprofit to coordinate planning activities along the riverfronts. In Boston, the Esplanade Association, a private-public partnership organization, was established in 2001 to restore and enhance the Charles River Esplanade. The Association has led to an impressive series of improvements and enhancements in the park, including the replacement of benches, dock renovations, launch of a park volunteer program, launch of a goose control program, free summer programming, construction of an Esplanade Playspace, and restoration of a memorial, among others.

Another prospective funding source for Waterfront Park-related projects is crowdfunding. Numerous online platforms exist to fund projects through philanthropic contributions. Two well-established crowdfunding platforms are Indiegogo and Citizinvestor, a crowdfunding and civic engagement platform that exclusively funds local government projects. Crowdfunding is not a new type of funding mechanism for public projects, nor is it new to Portland. In the pre-internet era, the construction of Pioneer Courthouse Square was funded brick by brick. More recently, Gateway Green, a 38-acre open space and recreation area, raised more than $120,000 through Indiegogo, an online platform. These funds were used to finance final design, permitting fees, and construction costs.

It is imperative that the non-profit entity phase its projects to take full advantage of these different sources of short-term and long-term funding over time. This will serve to sustain a long-term vision for the waterfront.

Funding Sources and Opportunities While the majority of moneys used to fund these projects would come from private sources, philanthropy, and grants, the City of Portland should contribute to the entity’s operating budget.

In return, stakeholder agencies would have representation on the organization’s board of directors.

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MOVING FORWARD: A STRATEGIC FRAMEWORK Tactical Urbanism: Temporary Interventions to Inspire Long-Term Change Tactical urbanism refers to an approach to placemaking that employs low-cost or temporary measures to spur movement towards a long-term transformation.

Why tactical urbanism?

Part of the appeal of tactical urbanism is that its methods tend to be low-cost but have the ability to have a disproportionately large impact. In days of shrinking municipal budgets, tactical urbanist measures fit well with the pressures that cities face to be creative with limited funding and to consider smaller and more incremental projects. Tactical urbanism represents a desire for increasing livability while responding to public processes that often alienate much of the public.

Its experimental nature means that it is a way of testing ideas without large financial, political, or time commitments, and without a permanent commitment to a particular approach. Such measures also allow community members to envision what changes could look like in a very concrete, immediate, and accessible manner rather than through artists’ or designers’ stylized renderings more typical in a formal planning process.

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Where should it be used?

Applicability in Waterfront Park

which tactical urbanist measures can be used to improve livability are the following:

Tactical urbanism tends to be applied in walkable, human-scale urban settings. Waterfront Park meets this criterion. However, what is unique about the application of tactical urbanism in the project study area, large urban park, is that frequently tactical urbanism is used to transform a streetscape lacking in green space into a pedestrian zone or a pocket park (such as a parking-space sized park). For these reasons tactical urbanist approaches applied in Waterfront Park are likely to look quite different than in, say, Times Square.

• To increase safety (traffic calming, temporary curb extensions) • To build awareness (by calling attention to unsafe intersections, or the need for additional amenities such as bicycle lockers) • To make a problematic or underused space more vibrant through temporary activities • To promote desired behaviors such as walking or cycling (through signs showing distances on foot or bicycle)

A broad range of issues can benefit from a tactical urbanist approach. A mere sample of the ways in

The five characteristics of tactical urbanism have been identified as: • “a deliberate, phased approach to instigating change; • an offering of local ideas for local planning challenges; • short-term commitment and realistic expectations; • low risks, with a possibly a high reward; • and the development of social capital between citizens, and the building of organizational capacity between public/ private institutions, non-profit/NGOs, and their constituents.”

“T

he lack of resources is no longer an excuse not to act. The idea that action should only be taken after all the answers and the resources have been found is a sure recipe for paralysis. The planning of a city is a process that allows for corrections; it is supremely arrogant to believe that planning can be done only after every possible variable has been controlled.”

-Jamie Lerner Architect, urbanist, and former mayor of Curitiba, Brazil

(Quoted in Lydon, et al., Tactical Urbanism 2: Short-Term Action, Long-Term Change)

Downtown Portland Waterfront Activation Strategy | June 2014

MOVING FORWARD: A STRATEGIC FRAMEWORK “A Day in the Park” as Tactical Urbanism Tactical urbanism as a form of incremental planning:

“I

mproving the livability of our towns and cities commonly starts at the street, block, or building scale. While larger scale efforts do have their place, incremental, smallscale improvements are increasingly seen as a way to stage more substantial investments.

This approach allows a host of local actors to test new concepts before making substantial political and financial commitments.”

(Lydon, et al., Tactical Urbanism 2: Short-Term Action, Long-Term Change)

Tactical urbanist techniques were used to transform the above section of Broadway in New York City into less of an auto-dominant place and more of a people-friendly place.

Many of the problematic conditions in Waterfront Park mesh very well with the examples identified above. Furthermore, the five characteristics of tactical urbanism identified by Lydon are highly applicable to Waterfront Park as they emphasize the use of low-cost temporary or phased measures in order to catalyze long-term change. In addition, one tactical urbanism’s characteristics and benefits, the creation of social capital, could be useful in spurring the creation of a public-private partnership or non-profit to develop and guide a long-term vision for the park.

Moving Forward: A Strategic Framework

Watermark Planning’s “A Day in the Park” captures the spirit of tactical urbanism. An experimental event, it involved several low-cost activities of an everyday nature to enliven the park. “A Day in the Park” served to raise awareness of park needs by addressing them in a temporary manner. For instance, holding children’s activities in the park called attention to the need for a play structure for children and other ongoing activities for children.

While temporary in nature, some of the activities that were present are ones which could evolve into a permanent use; two examples are the information booth or equipment rental station, which could easily become a permanent installation in the park. Another example which was canceled because of weather, a beach in the Hawthorne Bowl, could also serve to demonstrate that the Bowl could become an attractive location for bathing in the Willamette.

Other applications of tactical urbanism in Waterfront Park include the creation of a Sunday Parkway, combined with pop-up exhibits and retail spaces in vacant storefronts and lots along Naito Parkway. This could serve several purposes: to expand the pedestrian environment along Naito Parkway, traffic calming, and economic development.

Watermark Planning’s temporary Visitor Information Booth at “A Day in the Park.”

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9 OUTCOMES & ASSESSMENT

To measure and assess progress over time, BPS or a private non-profit entity should oversee regular assessments of a series of benchmarks in coordination with the relevant monitoring agency.

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PLACEMAKING: Outcomes & Assessment Frequency of Assessment

Objective

Method of Assessment

Yearly

Interactive art installations or permanent exhibits that educate, inspire, and/or serve a practical or wayfinding function are present in and around Waterfront Park.

Waterfront Park is a place where Portland’s unique history and natural environment are celebrated.

Monitor

Met

PPR

X

No playground exists.

PPR

X

No crosswalk art is installed at any Naito Parkway pedestrian crossings.

PBOT

Ongoing/rotating art displays occur in a programmed and designed space within the park at least every other week between the months of May and November.

X

There is no programmed rotation of art displays in the park.

PPR

Established galleries, pop-up exhibits in vacant spaces, and more cutting-edge open-air exhibits along or near Naito Parkway are connected by programmed public art walks that occur at least monthly between May and November.

X

No programmed public art walks occur in this area.

PDC

X

Some bridges are lighted for short periods of time or during special occasions.

Multnomah County

An interactive play structure for children designed to incorporate Portland’s maritime and Native American history (ex: steamboat, play bridges, and dug-out canoes) is installed in Waterfront Park.

Lighting on the bridges is installed, transforming them into dynamic nighttime attractions.

X

A feasibility study of installing a bandshell in the park has been completed.

X

No permanent bandshell exists.

PPR

A feasibility analysis of art on the seawall has been completed.

X

No analysis has been completed.

PPR

An inventory of the relevance and affordability of events has not been completed.

BPS

An inventory of current markers has not been completed.

PPR

No survey has been completed.

PPR

Arts and cultural events occurring in and around Waterfront Park are affordable to and representative of a larger segment of regional residents.

X

Historical markers are updated/replaced using the example of the Eastbank Esplanade.

X

Waterfront history is highlighted.

The level of awareness of Native American history as well as more recent history of the central city and the Willamette River is increased.

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Baseline (June 2014)

Not inventoried

Crosswalk art (e.g., salmon, other local flora and fauna) is installed and maintained in all major pedestrian crossings along Naito Parkway.

Waterfront Park is a public space for the expression and enjoyment of the arts and culture for all.

Yearly Until

X

Downtown Portland Waterfront Activation Strategy | June 2014

PLACEMAKING: Outcomes & Assessment Frequency of Assessment

Objective

Method of Assessment Yearly

Multiple ways exist for people to experience the “you are here� concept.

The street grid ends at Naito Parkway.

PPR

Street signs that identify cross-street connections to downtown are installed along the promenade in the style of the cross-street signs on the Eastbank Esplanade.

X

No street signs exist along Tom McCall Waterfront Park promenade.

PPR

Bridge signs are installed and clearly visible to passersby in the park.

X

No bridge signs are installed in Tom McCall Waterfront Park.

PPR

The Willamette River is clearly identified through signage.

X

No signs identify the Willamette River.

PPR

A variety of seating is installed throughout the park, including furniture for eating.

X

There are few seating options in Tom McCall Waterfront Park.

PPR

Covered areas are installed in conjunction with seating.

X

There are no covered seating area in Tom McCall Waterfront Park.

PPR

X

The Hawthorne Bowl is not terraced.

PPR

X

There are a total of two, permanent, single occupancy public restrooms in the park.

PPR

Not inventoried

PPR

Park ambassadors do not exist.

PPR

Not inventoried

PPR

No skatepark exists in this space.

PPR

Sufficient number of safe, public restrooms exist at convenient locations throughout the park.

X

X

Security is increased through the presence of park ambassadors.

A sufficient number of trash and recycling receptacles are installed and serviced thoughout the park.

Outcomes & Assessment

Monitor

X

Lighting throughout the park is improved, particularly under bridges.

The waterfront is an engaging place for users of all ages.

Baseline (June 2014)

The street grid is extended into the park in a series of pathways leading to viewing platforms over the seawall.

The Hawthorne Bowl is terraced to create a more formal amphitheater for enjoying performances as well as views of the river.

Visitors feel safe and comfortable in Waterfront Park.

Yearly Until Met

An all-weather skatepark and public plaza are contructed at the base of the Steel Bridge.

X X

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ACCESS & CIRCULATION: Outcomes & Assessment Frequency of Assessment

Objective

Method of Assessment

Yearly

A designated beach for swimming and direct water access exists.

Park visitors swim in the river and recreate by the water’s edge.

Residents and visitors are aware of the improved water quality of the Willamette.

Yearly until met

X

Changing rooms/bathrooms near areas of direct river access are installed.

X

No designated beach exists.

PPR

No changing rooms/ bathrooms exist for swimmers and other river users.

PPR

X

No survey completed

BES

Access to Hawthorne Bowl beach is improved to service all people.

X

Access to Hawthorne Bowl is limited; visitors must walk on very uneven surfaces.

PPR

No boat rental facility exists near Hawthorne Bowl.

BPS

Facilities for paddle boaters are limited. The Hawthorne Bowl is used for launching lightweight paddle watercraft.

BPS

BPS

X

Beach access and at least one low dock near the downtown core exist for paddle watercraft.

X

Tom McCall Waterfront Park is a destination for watersports activity.

A new paddleboat house exists within the Central Reach.

X

The paddle boat house on the eastside of the Willamette River is scheduled to be transitioned into another use within 8-12 months.

A covered seating and staging area that serves commercial and recreational boaters exists within Waterfront Park.

X

No designated covered area for boaters exists within Waterfront Park.

PPR

No count done

PPR

X

No platform exists.

PPR

X

No feasibility study for a viewing tower has been conducted.

PPR

Not inventoried

BPS

The mast of the USS Oregon is not located at the termination of Pine St. in the park.

PPR

The street grid ends at the eastern edge of Naito Parkway.

PPR

A regular count of the number of on-water and in-water recreationalists using Waterfront Park is conducted.

X

A cantilevered platform or pathway is installed over the river.

A feasibility study of building a viewing tower is complete.

Key sight lines to the river from downtown are inventoried and characterized.

X

Artwork is installed at terminating vistas in Waterfront Park.

The street grid is extended into the park in a series of pathways leading to viewing platforms over the seawall.

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Monitor

Portland residents are surveyed to gauge their level of knowledge regarding water quality issues and other topics concerning the environmental health of the river and its flora and fauna.

A boat rental facility exists near Hawthorne Bowl.

Waterfront Park provides visitors with visual access to the water.

Baseline (June 2014)

X

Downtown Portland Waterfront Activation Strategy | June 2014

ACCESS & CIRCULATION: Outcomes & Assessment Objective

Method of Assessment

Frequency of Assessment Yearly

X

Crosswalks across Naito Parkway are added at all intersections.

Signalization is modified to prioritize pedestrian movement across Naito Parkway.

Park visitors can easily walk, bike, and roll to the park from Central City neighborhoods and bridges.

Yearly Until Met

X

PBOT

N/A

PBOT

No study completed

PBOT

Two major bicycle gateways into and out of the park from Oak and Stark Streets are developed.

X

Connections between the downtown bicycle network and park paths are limited.

PBOT

Limited number of stairs and ramps connect the park to the bridges.

PBOT

X

A route for northbound commuter cyclists exists between the Naito/ NW Davis intersection into the park and back onto Naito Parkway.

X

Current route is designated as a difficult connection by PBOT.

PBOT

Public transit serves Naito Parkway and the waterfront.

X

There are no public transit stops along Naito Parkway.

PBOT

A feasibility study of adding a seasonal circulating shuttle connecting the Waterfront with other downtown locations is completed.

X

No study completed

PBOT

The following transit stops do not signal transit riders of their proximity to Waterfront Park: Yamhill District MAX station, Oak/ SW 1st Ave. MAX Station, SW Madison/1st Ave, SW Main/2nd Ave.

TriMet

Existing transit stop announcements to call attention to the stops’ proximity to waterfront destinations.

X

Separated bicycle and pedestrian paths exist along or near the promenade.

Signage is added to improve safety and increase courtesy between users of different modes.

X X

No separated bicycle and pedestrian paths exist

PPR

Signage is limited and non-specific.

PPR

A sidewalk or additional paths are installed along the western edge of Waterfront Park.

X

No sidewalk or path exists

PPR

Park users are surveyed to gauge their level of comfort and perception of safety.

X

No survey completed

PPR

A feasibility study of building a buffered two-way cycle track on the east side of Naito Parkway is completed.

X

No study completed

PBOT

Car-free Sundays on Naito Parkway do not occur.

PBOT

Car-free Sunday Parkways on Naito Parkway along Waterfront Park occur at least every other month between May and October.

Outcomes & Assessment

Crosswalks are needed at the following intersections: SW Columbia, SW Yamhill, SW Morrison, SW Stark, SW Oak, NW Couch, NW Flanders.

X

Park visitors can access the park easily via transit.

Park visitors have multiple paths along which to move through the park.

Monitor

A feasibility study of converting Yamhill St. into a pedestrian-only street from Naito Parkway to 1st Ave. is completed.

Pedestrians and bicyclists enjoy easy access to and from the bridges.

Park visitors can safely walk, roll, or cycle at various speeds with minimal conflicts between modes.

Baseline (June 2014)

X

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COMMERCIAL & RECREATIONAL BOATING: Outcomes & Assessment Objective

People use the river as a travel option.

Within the central reach, people make short connecting trips across the river by water transit.

Frequency of Assessment

Method of Assessment

Yearly

Monitor

X

No long-term docks plan for the Central Reach of the Willamette River has been completed.

BPS

A feasibility study of a Lake Oswego to Downtown Portland commuter ferry is completed.

X

No commuter ferry feasibility study for service between these two cities has been completed.

BPS

A governance and management structure for long-term regional onwater transit systems is in place.

X

No governance and management structure for longterm regional on-water transit systems is in place.

BPS

A feasibility and demand study for a cross-river seasonal ferry is complete.

X

No feasibility study has been completed.

BPS

X

No target areas are identified.

BPS

Target areas underserved by bridge and road connections for longerterm commuter potential are identified.

A count of the number of commuters who cross the river by water transit is completed.

X

No count done

BPS

Permanent mooring buoys are installed in Hawthorne Bowl.

X

No permanent mooring buoys are installed in Hawthorne Bowl.

BPS

No dock is designated for downtown motorboat access

BPS

Facilities for paddle boaters are limited. The Hawthorne Bowl is used for launching lightweight paddle watercraft.

BPS

BPS

X

Beach access and at least one low dock near the downtown core exist for paddle watercraft.

X

A new paddle boat house exists within the Central Reach.

X

The paddle boat house on the eastside of the Willamette River is scheduled to be transitioned into another use within 8-12 months.

A covered seating and staging area that serves commercial and recreational boaters exists within Waterfront Park.

X

No designated covered area for boaters exists within Waterfront Park

PPR

Access to Hawthorne Bowl is limited, people must walk on very uneven surfaces

PPR

Access to Hawthorne Bowl beach is improved to serve all people.

X

A boat rental facility exists near the Hawthorne Bowl.

X

No boat rental facility exists near Hawthorne Bowl

BPS

Changing rooms/bathrooms near areas of direct river access are installed.

X

No changing rooms/bathrooms exist for swimmers and other river users

PPR

No count done

PPR

A count of the number of on-water recreationalists using Waterfront Park is completed.

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Baseline (June 2014)

A long-term docks plan for the Central Reach of the Willamette River is completed.

A dock for downtown motor boat access is designated.

Mooring, docks and services attract on-water recreationalists to Waterfront Park.

Yearly until met

X

Downtown Portland Waterfront Activation Strategy | June 2014

COMMERCIAL & RECREATIONAL BOATING: Outcomes & Assessment Frequency of Assessment

Objective

Method of Assessment A count of the number of paddle boater who have earned their boater education cards is completed.

Paddlers, swimmers, and boaters use the river without conflict.

There are separate and clearly marked zones for swimming and boat mooring in the Hawthorne Bowl.

Boat renters are required to take a safety education class before taking boats out on the river.

Outcomes & Assessment

Baseline (June 2014)

Monitor

X

No count done

PPR

X

There are no separate and clearly marked zones for swimming and boat mooring in Hawthorne Bowl

PPR

Boat renters are not required to complete a safety class before taking the boat out on the river

PPR

Yearly

Yearly Until Met

X

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ECONOMIC DEVELOPMENT: Outcomes & Assessment Objective

Frequency of Measurement

Method of Measurement

Yearly

Yearly Until Met

Car-free Sunday Parkways on Naito Parkway along Waterfront Park occur at least every other month between May and October.

Naito Parkway is a vibrant, pedestrianfriendly corridor that features a variety of active evening and weekend uses complementing Tom McCall Waterfront Park.

Car-free Sundays on Naito Parkway do not occur as of June 2014.

PBOT

X

N/A

PDC

Market rental rates for office and retail space more closely align with the Central City sub-market rental rates.

X

N/A

PDC

The Hawthorne, Morrison, and Steel Bridgeheads are mostly undeveloped.

BPS

N/A

PDC

Inventory of residential workforce housing units in blocks near Naito Parkway more closely align with CC2035 goals.

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Monitor

Vacancy rates for office and retail space align more closely with the Central City sub-market vacancy rates.

X

Bridgeheads are developed with key public attractions and mixed uses.

There is a revenue-generating, all-weather skatepark and public plaza at the base of the Steel Bridge that serves as a world-class competition facility and a regional attraction.

Baseline

X

The auto-access ramp leading from southbound Naito Parkway onto the eastbound portion of the Steel Bridge is decommissioned.

X

The auto-access ramp is still used, although only by road maintenance vehicles.

PBOT

A financial framework for funding the project, including establishing a strategy for operations and maintenance has been created and adopted by the Old Town/Chinatown as well as City Council.

X

No framework currently exists.

PPR

The Steel Bridge Skatepark is built.

X

No skatepark exists in this space.

PPR

Downtown Portland Waterfront Activation Strategy | June 2014

ECONOMIC DEVELOPMENT: Outcomes & Assessment Objective

Method of Measurement

Amenities and services support waterfront commercial activity and draw residents and visitors to the area.

Baseline

Monitor

PPR

X

Loading-zones along Naito Parkway have been designated to serve commercial activity clusters in the park.

X

There are no officially desgnated loading zones along Naito Parkway.

PBOT

The Old Visitors Center is currently occupied by the Rose Festival and does not generate revenue.

PPR

Outside of the Bill Naito Legacy Fountain and the space occupied by Saturday Market, hardscaped surfaces in the park are limited.

PPR

Currently vendors at Saturday Market are the only weekly presence in the park during the months of March December

PPR

BPS

X

A hardscaped surface for events and temporary commercial uses exists in the park.

X

X

The zoning code is modified to allow for small-scale retail uses in the park without conditional use permits.

X

Currently the zoning code does not allow for small-scale retail use in the park without a conditional use permit

A feasibility and engineering study for siting a cafe or other retail use under one of the bridges has been completed.

X

No study has been completed.

PPR

A cafe or other retail use occupies a space under one of the bridges.

X

Currently no cafe or retail use occupies any of the space under either of the bridges.

PPR

A visitor information booth is located in the park to direct people to businesses, services, and activities in the vicinity of the waterfront.

X

There is no visitor information available in the park.

PPR

Pop-up activities, services, and events occupy the proposed hardscaped surface in the park at least twice a month.

X

No hardscaped surface exists on which activities and services can locate.

PPR

X

The events are constrained to the park or the surface parking lots along the western edge of Naito Parkway. Some events make limited use of Naito Parkway.

PBOT

The retail core currently ends at 3rd Street.

PDC

Not inventoried as of June 2014

PDC

Events are free to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets”), and/or adjacent Festival Streets in Old Town/Chinatown.

The downtown retail core on Morrison and Yamhill streets extends to the Waterfront.

A broad mix of retail opportunities at the street level exist along Morrison and Yamhil streets, extending at least to Naito Parkway.

Outcomes & Assessment

Yearly Until Met

Commercial activity clusters have been designated within the park.

Vendors, other than those at Saturday Market, operate in the park on at least a weekly basis.

The space under the Hawthorne and/or Morrison bridges is used for temporary or permanent commercial uses including food/drink establishments.

Yearly

The Naito Legacy Fountain area is the only designated area for clusters of commercial activity.

The Old Visitor’s Center near Salmon Street Springs is used for a revenue generating commercial use.

Park users can rent recreational equipment and purchase refreshments in the park beyond Saturday Market.

Frequency of Measurement

X X

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NATURAL ENVIRONMENT: Outcomes & Assessment Objective

Frequency of Assessment

Method of Assessment

Yearly

Three pollinator gardens using native plants in existing planters are installed.

Salmonids utilize shallow water habitat in the Hawthorne Bowl.

Residents and visitors are informed about and appreciative of the environmental context of the park.

Hawthorne Bowl is clean and geese don’t interfere with human use.

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Baseline (June 2014)

Monitor

No pollinator gardens have been installed.

PPR

Park tree habitat and native avian species habitat needs has not been studied.

PPR

X

No current trees have been replaced with natives

PPR

Spaces for clusters of native vegetation and habitat are identified.

X

No spaces for clusters of native vegetation and habitat have been identified.

PPR

A natural contemplative space is created.

X

No natural contemplative space has been created.

PPR

Park tree habitat and native avian species habitat needs are studied.

Wildlife is able to travel along natural corridors to and through Waterfront Park.

Yearly Until Met

X

X

Current tree pattern is replaced with natives.

The best locations of in-river habitat are identified and protected in the Bowl.

X

No locations of inriver habitat have been identified and protected.

The separation of salmon and human uses is addressed.

X

The separation of salmon and human use had not been addressed.

Interactive art installations, permanent exhibits, and formal programs that educate and connect people to natural systems are developed.

Terracing and linear shrubs or hedges are installed in the Bowl.

X

No art installations, permanent exhbits, or formal programs have been developed.

X

The Bowl does not have any terracing or linear shrubs or hedges

PPR PPR PPR PPR PPR PPR

Downtown Portland Waterfront Activation Strategy | June 2014

EVENTS: Outcomes & Assessment Objective

A citywide plan for events and festivals coordinates activities in public spaces, including Tom McCall Waterfront Park.

The number of days of unobstructed public park use during prime weather months is increased.

Method of Assessment

Yearly

Outcomes & Assessment

Baseline (June 2014)

Monitor

X

No net economic impact analysis has been completed.

BPS

A city-wide strategic plan for events and festivals has been created.

X

No city-wide strategic plan for events and festivals has been completed.

BPS

No standard time limit exists.

PPR

Event length, including setup and takedown, is limited by a standard time limit.

X

An escalating fee schedule for events that exceed this standard time limit is established.

X

No escalating fee schedule exists.

PPR

Alternate locations for ticketed events are identified.

X

No alternate locations have been officially designated.

PPR

X

The largest events occupy the space between Saturday Market and the Hawthorne Bridge.

PPR

X

Event fees do not currently cover full park maintanence costs required to mitigate their impacts on the park.

PPR

No hardscaped surface exists in the park beyond the covered Saturday Market space.

PPR

Events in the park do not use Naito Parkway, downtown blocks, or adjacent Festival Streets in Old Town/Chinatown.

PBOT

Event fees cover the full costs of park maintenance required to mitigate their impacts on the park.

A hardscaped surface, to service smaller events, is constructed in the park.

Events strengthen the connection between Waterfront Park and adjacent neighborhoods, especially Downtown and Old Town/Chinatown.

Yearly Until Met

A third-party net economic impact analysis of events and festivals in the city has been completed.

The amount of space dedicated to fenced events in Waterfront Park is minimized, relative to the baseline year.

Event uses enliven the park without negatively impacting other users.

Frequency of Assessment

Events are able to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets�), and/or adjacent Festival Streets in Old Town/Chinatown.

X

X

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10 A CALL TO ACTION

Watermark Planning strongly recommends that a private nonprofit entity be created to plan, coordinate, implement, and manage waterfront projects within the Central Reach of the Willamette River.

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A CALL TO ACTION: PHASING Reviewing forty years of planning for Portland’s waterfront reveals the numerous common themes running through past plans’ visions for Governor Tom McCall Waterfront Park and its surroundings. Watermark Planning’s activation strategy represents an attempt to synthesize these themes and infuse them with a fresh, 21st century perspective. This plan offers a way forward that is bolstered by a sustainable implementation strategy.

Theme

Short-Term Action Remove rip-rap rock in selected areas to create an area conducive to swimming Create a beach Encourage a new boat rental facility near Hawthorne Bowl Develop covered seating area as staging area for recreational boaters Add crosswalks across Naito Parkway at all intersections: SW Columbia, SW Yamhill, SW Morrison, SW Stark, SW Oak, NW Couch, NW Flanders

Access & Circulation

Modify signalization to prioritize pedestrian movement across Naito Study the feasibility of adding a seasonal circulating shuttle connecting the Waterfront with other downtown locations

Watermark Planning offers three recommendations to jumpstart the process of activating Waterfront Park today:

Modify existing transit stop announcements (Yamhill District MAX station, Oak/SW 1st Ave. MAX Station, SW Madison/1st Ave, SW Main/2nd Ave) to call attention to the stops’ proximity to waterfront destinations

• The City of Portland should create a non-profit entity to manage waterfront projects;

Explore the feasibility of closing Naito Parkway on Sundays

• Tactical urbanism should be employed to get low-cost projects off the ground and bring changes to the park as quickly as possible; and

Add signage to improve safety and increase courtesy between users of different modes Create a long-term docks plan Improve access to Hawthorne Bowl beach Commercial & Recreational Boating

It’s time to get our feet wet!

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Install permanent mooring buoys in Hawthorne Bowl Require boat rental safety education class Study feasibility and demand for cross-river, seasonal ferry

• Portland should undertake a catalytic project to transform its downtown waterfront.

Actions, or steps, recommended in this plan have been organized according to time-frames for implementation and are presented in the following tables. By moving forward right away with the list of short-term projects, Portland has the potential to dramatically transform its downtown waterfront.

Install changing rooms/bathrooms near areas of direct river access. 3-5 years

Allow events to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets”), and/or adjacent Festival Streets in Old Town/Chinatown Conduct feasibility and engineering study for siting a cafe or other retail use under one of the bridges Economic Development

Create a visitor information booth in the park to direct people to businesses, services, and activities in the vicinity of the waterfront Decommission the auto-access ramp leading from southbound Naito Parkway onto the eastbound portion of the Steel Bridge Designate commercial activity clusters within the park Designate loading-zones to serve commercial activity clusters in the park Establish car-free Sunday Parkways on Naito Parkway along Waterfront Park

Downtown Portland Waterfront Activation Strategy | June 2014

A CALL TO ACTION: SHORT-TERM STEPS Theme

Short-Term Action Explore and prioritize alternate commercial uses for the old Visitors Information Center Explore siting options for human-powered watercraft rentals along Naito Parkway Implement incentives that encourage new development in the Naito Parkway/riverfront area, including targeted clusters of commercial uses

Economic Development

Incentivize workforce housing development along SW Naito Parkway and in the blocks immediately adjacent to the waterfront Pair temporary and pop-up uses in the park and along Naito with Sunday Parkways Recruit property owner participation for a program to use vacant spaces and lots for pop-up activities (food, art, entertainment) Explore alternate locations for ticketed events

Events

Petition a third-party net economic impact analysis of events and festivals in the city to provide a clear understanding of economic impact and set a baseline for evaluating tradeoffs

Natural Environment

Install three pollinator gardens using native plants in existing planters Design public space for ongoing/rotating art displays Develop interactive art installations or permanent exhibits that educate, inspire, and/or serve a practical or wayfinding function (ex: Create “tree stump” seating dispersed throughout the park to symbolize Portland’s early nickname “Stumptown”) Identify the Willamette River through signage Improve lighting throughout the park, particularly under bridges Increase awareness of Native American history of the Central City and the Willamette River Increase awareness of the political legacy of Tom McCall, the park’s namesake, and his significance to the State of Oregon Increase security through the presence of park ambassadors Install a variety of seating throughout the park, including furniture for eating

Placemaking

Install an interactive play structure for children designed to incorporate Portland’s maritime and Native American history (ex: steamboat, play bridges, and dug-out canoes) Install an interactive play structure in the park for children designed to incorporate Portland’s maritime and Native American history (ex: steamboat, play bridges, and dug-out canoes) Install bridge signs clearly visible to passersby in the park Install covered areas in conjunction with seating Install crosswalk art (ex: crosswalks representing salmon, other local flora and fauna) Install lighting on the bridges to transform them into dynamic nighttime attractions Install more trash and recycling receptacles Install street signs identifying cross-street connections to Downtown along promenade in the style of the cross-street signs on the Eastbank Esplanade Update/replace historical markers using the example of the Eastbank Esplanade

A Call to Action

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A CALL TO ACTION: INTERMEDIATE STEPS Theme

Medium-Term Action Improve access to Hawthorne Bowl beach Expand options for paddle boats, including beach access and at least one low dock near the downtown core Develop a better route for northbound commuter cyclists between the Naito/NW Davis intersection into the park and back onto Naito Parkway.

Provide a changing facility for beach visitors

Access & Circulation

Identify and site new paddleboat house Extend the street grid into the park in a series of paved pathways leading to viewing platforms over the seawall Improve connections between the downtown bicycle network and park paths by developing two major bicycle gateways into and out of the park from Oak and Stark Streets Eliminate impediments to easy pedestrian and bicycle access to and from the bridges Introduce transit service along on Naito Parkway and the waterfront Resolve path conflicts between the Portland Loos, trees, and potential pathways Create a more inviting space for pedestrians through the use of vegetation and pedestrian-scale lighting Commision a feasibility study of a potential Lake Oswego-Downtown Portland commuter ferry Create separate zones for swimming and boat mooring in Hawthorne Bowl Develop covered seating and staging area that serves commercial and recreational boaters

Commercial & Recreational Boating

Develop governance and management structure for long-term regional on-water transit systems Encourage a new boat rental facility near Hawthorne Bowl Expand options for paddle boats, including beach access and at least one low dock near the downtown core.

Identify and site new paddle boat house Identify dock for downtown motor boat access Identify target areas underserved by bridge and road connections for longer term commuter potential Promote boater education cards for paddle boats Create a hardscaped surface in the park Develop a financial framework to fund the skatepark, including establishing a strategy for operations and maintenance

Economic Development

Develop commercial activity clusters in the park, with design standards Encourage a broad mix of retail opportunities at the street level Encourage redevelopment with key public attractions and mixed uses at the bridgeheads Locate pop-up activities, services, and events on the proposed hardscaped surface in the park Modify the zoning code to allow for small-scale retail uses in the park without conditional use permits Allow events to reserve and utilize Naito Parkway, downtown blocks (with priority on “flexible streets”), and/or adjacent Festival Streets in Old Town/Chinatown

Events

Complete a strategic plan for events to help lay out the future of programming in Portland’s public spaces and provide greater certainty to event operators Establish escalating fee schedule for events that exceed this standard time limit

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Downtown Portland Waterfront Activation Strategy | June 2014

A CALL TO ACTION: INTERMEDIATE STEPS Theme Events

Medium-Term Action Limit event length, including setup and takedown, by establishing a standard time limit Raise event fees to cover the full costs of park maintenance Develop interactive art installations or permanent exhibits that educate and connect people to natural systems Identify spaces for clusters of native vegetation and habitat

Natural Environment

Identify the best locations of in-river habitat, weighing benefit to salmon, balance with human access, feasibility, and maintenance Partner with local institutions to develop formal programs, in particular geared toward youth and families Study park tree habitat and native avian species habitat needs Within Master Park Plan, address separation of salmon and human uses Explore feasibility of art on the seawall Explore the feasibility of installing a bandshell in the park Extend the street grid into the park through a series of paved pathways leading to viewing platforms over the seawall

Placemaking

Install terracing the bowl to create a more formal amphitheater for enjoying performances as well as views of the river Organize/program public art walks to connect established galleries, pop-up exhibits in vacant spaces, and more cutting-edge open-air exhibits Prioritize and promote art and cultural events that are affordable to and representative of a larger segment of regional residents Provide and maintain safe public restrooms at convenient locations throughout the park

A Call to Action

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A CALL TO ACTION: LONG-TERM STEPS Theme

Long-Term Action Install a cantilever platform or pathway over the river Study the feasibility of building a tower that would enable park visitors to take advantage of views of the waterfront, downtown, and Mount Hood

Access & Circulation

Construct ramps, stairs, or other vertical connections to allow direct access from the bridges (Morrison, Burnside, Steel) into the park.

Create separated bicycle and pedestrian paths along or near the promenade Improve pathways along the western edge of the park by completing the sidewalk network or installing additional paths within the park Explore the feasibility of building a buffered two-way cycle track on the east side of Naito Parkway

Economic Development

Expand the downtown retail core on Morrison and Yamhill streets to the Waterfront

Economic Development/ Placemaking

Build a skatepark

Events

Create a hardscaped surface in the park that can be used for smaller events Design and install natural contemplative space

Natural Environment

124

Install terracing in the Bowl that blocks goose sightlines and breaks up the large open spaces that geese favor.

Install linear shrubs or hedges perpendicular to terraces to scare away geese fearful of potential predators.

Downtown Portland Waterfront Activation Strategy | June 2014

A CALL TO ACTION: ONGOING Theme

Ongoing Action Launch an educational campaign to inform residents of water quality issues and other topics concerning the environmental health of the river and its flora and fauna

Access & Circulation

Improve and protect sight lines to the river from downtown Explore the installation of artwork at terminating vistas, for instance, move the mast of the USS Oregon to the terminus of Pine St. in the park Study the feasibility of converting Yamhill St. into a pedestrian-only street from Naito Parkway to 1st Ave.

Economic Development

Study redevelopment incentives to encourage new commercial and residential development along Naito Parkway Engage the Old Town/Chinatown community to sustain support for the skatepark Encourage vendors to operate in the park on a regular basis

Events

Minimize the amount of space dedicated to fenced events

Natural Environment

Prioritize salmon habitat within the Bowl

A Call to Action

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APPENDICES A. Community Engagement B. Other Alternatives Considered C. Funding for Placemaking D. Sources

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APPENDIX A: COMMUNITY ENGAGEMENT Watermark Planning made multiple efforts to engage the public and other interested parties in order to solicit their input for this plan. This process included reaching out to individuals and organizations already active in The River Plan and Central City 2035 planning efforts, tapping local expertise on a range of topics, surveying the public, and developing innovative ways to engage a diverse audience both online and in person. As a result, the community engagement process consisted of two open house events, a series of on-site outreach events, interviews with stakeholders and technical advisers, three surveys, and an online and social media presence. In all, Watermark Planning received more than 800 unique public comments.

Process On March 10, Watermark Planning participated in a Central City 2035/West Quadrant Community Open House held at City Hall, where the project overview was first publicly presented. Visitors were also able to give initial feedback through a dot exercise focused on a map of Waterfront Park as well as an online survey.

On three occasions (mid-March to mid-April), Watermark Planning interacted with visitors and event participants at the waterfront. Outreach consisted of administering an intercept survey at the Shamrock Run and two all-day tabling events at a booth at Saturday Market. These occasions provided an opportunity to present the project and to administer a brief intercept survey. In all, over 150 intercept surveys were completed.

Watermark Planning also organized another event at Waterfront Park, called “A Day in the Park” (April 27), to provide visitors with an opportunity to reimagine a waterfront made more vibrant through the introduction of temporary and inexpensive interventions. Using tactical urbanist techniques, the team arranged sports equipment rentals/loans, an arts and crafts station for children, live folk music (duo with guitar), and a tourist information table. This event received television and online coverage from the following media outlets: The Oregonian, KGW News Channel 8, and KOIN 6 News. In addition, the blog BikePortland published a piece about the project, with a focus on cycling concerns in and near Waterfront Park.

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A more extensive and systematic mechanism for gathering the public’s feedback was the creation of an online survey. The survey provided multiple write-in opportunities, which were heavily used, and a map that allowed survey takers to identify specific segments of the park that need additional activity.

Over 350 survey responses were received, with 278 fully completed. The online survey was publicized at all outreach events, via the project website, through stakeholders, and on social media sites.

Another important and ongoing aspect of the outreach process (running from February to May) consisted of in-person interviews with over 30 community stakeholders and technical advisers. These included downtown business owners, members of the boating community, representatives of cultural and heritage associations, representatives of environmental organizations, representatives of festivals and tourism groups, and advocates in the areas of active transportation and accessibility. In most cases, the outreach included in-person interviews. In the case of the business community, this also involved door-to-door conversations and an online survey shared via the Portland Business Alliance and business owners.

Watermark Planning complemented its in-person community engagement with a robust and varied online and social media presence. The project’s website, activatethewaterfront.com, publicized information about the project and upcoming events. It also hosted links to the online survey as well as a map application, developed by one of the team members, that enabled users to make comments and suggestions—classified as good, bad, or neutral—related to aspects of Waterfront Park and adjacent areas.

Watermark Planning also maintained a Facebook page, “Activate the Waterfront!” which was linked to a Twitter feed. In addition to serving as another means for publicizing community engagement events, the Facebook page, which garnered 153 likes, served as a venue for showcasing Portland’s waterfront history through historic photos as well as for highlighting innovative and inspirational examples of waterfront planning from across the nation and around the world.

Downtown Portland Waterfront Activation Strategy | June 2014

APPENDIX A: COMMUNITY ENGAGEMENT In order to provide an opportunity for the public to review initial findings and proposed alternatives, the team held an Open House on May 10 at Mercy Corps Headquarters, a location close to the waterfront and Saturday Market, with signage directing passersby to the event. The event highlighted a range of alternatives to address boating, circulation/access, commercial, environmental, and placemaking needs, as well as showcasing case studies from other riverfront cities. After the event, all materials presented were made available on the Activate the Waterfront! website.

Watermark Planning shared the same findings and recommendations from the May 10 Open House with the West Quadrant Stakeholder Advisor Committee (SAC) at a meeting on May 19. This was done through a poster display, a presentation to the SAC, and a handout to committee members.

Surveys Survey Process Watermark Planning distributed the online survey link through social media, outreach events, the project website, word of mouth, and printed flyers. In all, 278 online surveys were fully completed. A shorter intercept survey was administered in person at three occasions at the waterfront including the Shamrock Run and two days at Saturday Market. In all, 163 intercept surveys were completed. The downtown business survey was administered through email and direct contact with business owners. Twelve business surveys were completed.

Despite the non-random selection of respondents, the results provide a valuable snapshot of how some park users and area residents view the park and what may make it better. In addition, while advocates for certain modes or activities may be overrepresented among respondents to the online survey, it is worthwhile to gather their input, as they will most likely be involved and also vocal participants within the planning process.

APPENDIX A: Community Engagement

Survey Results A complete copy of survey questions and responses is available in the Community Engagement Supplement. In addition to those items already discussed in the Community Engagement section, the supplement includes the following: Intercept and Online • Demographic information • Race/ethnicity • Age • Gender • Income • Employment status • Place of residence • Park Usage • Events attended • Levels of interest in various activities in the Willamette River • Park Improvement: • Identifying historical topics to be reflected in the park • Identifying environmental improvements in the park Business Survey • • • • • • • • •

Business type Hours of operation Number of employees in downtown Portland Customer activity Benefit from Waterfront Park festival activity Benefit from proximity to Waterfront Park Benefit from proximity to Naito Parkway Park features that would benefit business District identity

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APPENDIX A: COMMUNITY ENGAGEMENT Interviews Access & Circulation Interviews with members of the cycling community repeated the concern, recorded chiefly in survey write-ins, that the shared pathway along the seawall made pedestrian-bicycle conflicts unavoidable. They favored its replacement with the international standard of physically separated paths. In addition, they expressed dissatisfaction with the bike lanes on Naito, which were described as a “facelift.�

Commercial & Recreational Boating In interviews with members of the boating community, one recurring theme was that commercial boat operators and regional cruise lines want to operate out of Portland. Boaters of all types would like better access to the river and to downtown, as well as certainty regarding both temporary and permanent docking facilities. Interviews also revealed the existence of multiple conflicts on the river. For instance, the Willamette Greenway creates a conflict with commercial access to the river. In addition, conflicts on the water necessitate better education for all river users.

Economic Development According to the business community, the park cannot be successful without activating the adjacent blocks. To encourage redevelopment on these blocks, particularly new residential development, there is a need for city-provided development incentives such as SDC waivers and lower cost loan capital for construction and long-term financing. Public safety in the park is a pressing concern for businesses located nearby, and many business survey subjects expressed a desire for a stronger police presence in and around the park.

Business owners also noted that the events have mixed effects for local businesses: while some benefit from event traffic, many others do not and, in fact, find the events disruptive to their business.

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Implementation Portland’s weak mayoral system and bureau-head structure results in a political climate in which administrative and legislative priorities change with each new administration, making it immensely difficult to implement long-term plans and visions. Local advisers representing local agencies and foundations, as well as those offering their expertise in developing successful riverfronts in other cities, recommend separating long-range waterfront management from electoral politics. A separate management organization could also help navigate the common financial pitfalls of large-scale waterfront projects. It was stated during an interview that the most successful public-private partnerships are built through finding an asset that is under-maintained and pairing it with a private interest that wants to see it improved and/or maintained.

The lack of a budget for maintenance in plans for capital parks projects means that their development adds to existing debt. Any capital improvements, whether they involve private dollars or not, need to include a funding plan and budget for long-term maintenance. A bond measure or levy for parks funding is overdue. It has been ~15 years since one passed, though the last time polling was done it indicated that there is not enough political support for passing one at this time. A bond measure will not pass unless there is strong leadership behind it and someone who makes it a priority. An alternative idea for raising funds is to form a Parks District with taxing authority.

Natural Environment Waterfront Park has been relatively ignored as a space for natural plantings and habitat improvement; however, its central location makes it integral to the larger open space system. Habitat improvements in the park should be coordinated with corridors that connect into downtown parks and along the Willamette Greenway. It was also noted that the park, as a frequently visited space, offers the opportunity for public engagement with interactive and dynamic displays around natural themes beyond the poorly maintained informational stormwater signage currently hidden south of Hawthorne Bowl.

Downtown Portland Waterfront Activation Strategy | June 2014

APPENDIX A: COMMUNITY ENGAGEMENT When discussing the challenges of the Hawthorne Bowl, environmental design professionals responded that human access cannot truly coexist with salmon habitat and that these uses should be clearly separated. It was further noted that there are a number of ways to discourage geese from using the bowl as a year-round feeding ground but that no one method has proven to be successful on its own. Design of the bowl to limit sightlines was most often repeated as the most humane and viable way to discourage geese.

Placemaking Marketing the waterfront to tourists may be easier if the area was branded: “Waterfront District.” One tourism-focused organization typically only sends visitors to the waterfront when a special event (e.g., Saturday Market) is occurring, as there is “not much to do” there otherwise (on a “regular” day).

The waterfront’s existing historical markers are not visible enough. In fact, some local historians were not even aware that any existed there currently due to their lack of visibility and many markers’ state of disrepair. Should markers be replaced, a wealth of historical information about the waterfront is already compiled and could easily be transferred to new markers/informative history displays. Portland’s waterfront history tends to start with Pettygrove and Lovejoy founding of the town in the mid-19th century. Waterfront history should not only focus on European settlers and their heritage, but of all relevant cultural/ethnic groups (e.g., Multnomah tribe, Asian immigrants, etc.).

Food cart vendors indicated that they may be hesitant to set up shop on the waterfront due to uncertainty with regard to necessary levels of foot traffic/ potential customers on non-event days. Amenities required for successful food vendor operations: ample power supply, seating for customers, and waste receptacles. Overall, the Hawthorne Bowl, due to its current topography, is difficult to program.Changes including terracing may facilitate more robust programming efforts.

APPENDIX A: Community Engagement

“A Day in the Park” “A Day in the Park” was organized as a demonstration project to show park visitors how simple, temporary, and inexpensive offerings can enrich visitors’ experience of Waterfront Park without the presence of large, ticketed events.

A craft table allowed children to construct boats out of popsicle sticks or to color scenes depicting river life and another booth lent sports equipment to park visitors. Having children engaged in craft and sports activities allowed the team to engage with parents in greater depth about the project. A folk duo performed and a tourist information table supplied passersby with information about the park and nearby attractions.

Necessitated by project timelines, “A Day in the Park” was held at the end of April and included occasional downpours and chilly temperatures. Nonetheless, at least 50 visitors took part in the events, including at least five families. It is worth noting that of those families who participated, at least three included individuals who were not native speakers of English. This represented a very different demographic than those who attended open house events.

Another important observation made clear by the event was the absence of any ongoing activities for children in Waterfront Park. While the fountains serve as a seasonal draw for children, there is no playground in the park. The lack of a playground represents a lost opportunity to keep families in the park for longer visits on days when no festivals are underway.

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APPENDIX A: COMMUNITY ENGAGEMENT Open House

Conclusions and Suggestions

The Open House event on May 10 provided an opportunity to share findings and recommendations to date with the public. BPS staff were also on hand to share information about the Central City 2035 West Quadrant Planning process.

Open House attendees were able to weigh in on each of the alternative boards, organized by theme, using comment cards or sharing their comments with Watermark Planning staff. In addition, an exercise using pennies gave attendees an opportunity to rank five “catalytic projects” according to which they would most like to see instituted at the park. These projects were a skatepark, a hardscaped area, a redesign of the Hawthorne Bowl including terracing and a stage, a river heritage plaza, and the creation of a non-profit to manage park activities. The projects were chosen because of their potential to have a transformative effect on the park. The project boards were also made available on Activate the Waterfront’s website, with further opportunity to provide feedback. Of the five catalytic projects, the skatepark and the Hawthorne Bowl redesign were the clear favorites, receiving nearly the same number of votes.

Watermark Planning’s community engagement process was constrained by a tight timeline and the months in which the project needed to be carried out (January to May). Some proposed events for A Day in the Park, such as a beach scene in the Hawthorne Bowl, had to be dropped because of conditions on the ground including high water level, goose droppings. Watermark Planning recommends that if the City wishes to engage the public in similar tactical urbanist activities in the future, it would be most effective and well attended during the summer months. Watermark Planning also encourages the City to hold planning events on-site in the park itself in order to attract a more diverse audience.

Handwritten comments at the event covered all five thematic areas of boating, circulation/access, commercial, natural environment, placemaking and in general were supportive of the alternatives proposed. There was particular interest in relocating the festivals. Other comment topics were activities for children including a playground, goose mitigation, creation of a permanent concert space, and improving pedestrian and cyclist circulation both within the park and along Naito Parkway. While commenters supported additional project such as the skatepark, they also expressed concerns about Parks’ ability to maintain such spaces.

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Downtown Portland Waterfront Activation Strategy | June 2014

APPENDIX B: OTHER ALTERNATIVES CONSIDERED Watermark Planning drafted an initial group of alternatives for activating Tom McCall Waterfront Park. These alternatives were presented to the public and stakeholders at two public open house events and online through a virtual open house. Upon receiving and considering feedback, Watermark pared down the list of alternatives. The following list of alternatives are those that did not move forward into the final recommendations. The reasons for not moving these forward vary, but in general many of the unrecommended alternatives fall into one of two categories: they are too specific and have since been folded into more broad-based recommendations, or they are simply not financially or politically possible.

Circulation and Access ● Relocate boat tie-ups to exterior of seawall ● Seawall stepdown ● Bi-directional cycle path on the east side (park side) of Naito

Placemaking ● Floating stage • Can be used for both performances and as a swimming platform ● Self-guided walking tours ● Walking distances in minutes • Signs that show travel time by foot correct the misconceptions of travel distances.

Economic Development ● Cafes or commercial uses on boats moored at the seawall ● Evening market under the Morrison Bridge • Potential partners: James Beard Public Market ● Food truck parklet ● Book, magazine, and game rental kiosk Boating ● Semi-permanent stage barge • A barge could be used by swimmers during the day and as a stage for performing artists at night.

APPENDIX B: Other Alternatives Considered

● Cluster historic boats • Bring active historic boats, including PT-658, to centralized docks alongside the sternwheeler. Include public access for on-river tours. ● River Heritage Center • A river heritage center would connect people to the history of the river through integrated and clustered activities. The center would include a cafe, playground, public plaza, and museum with native, maritime and downtown history.

Natural Environment ● Avian sculpture garden • Design a sculpture garden of nesting sites (birdhouses) for flocking birds. ● On- or near-water osprey poles for nesting sites ● Goose mitigation strategies • Remove grass • Hardscape the Bowl into a stepped-down amphitheater, similar to Pioneer Courthouse Square.

• Noisemakers that imitate natural predators • Replant with fescue grasses • Fescue grasses are harder for geese to eat and digest, making these areas somewhat less appealing.

• “Don’t feed the geese” signs • Goose fences • Covered areas to reduce landing spaces ● Remove the seawall • Create a stepped or sloped riverbank more natural in design. Allow only temporary uses in floodplain. ● Create “estuaries” by cutting into seawall ● “Fish hotels” Create shallow water habitat along seawall by placing accessible viewing platforms into the river that break up channel flow and catch sediment.

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APPENDIX C: FUNDING FOR PLACEMAKING Grants for Placemaking and Tactical Urbanism Projects ArtPlace America ● Innovation grants - invest in creative placemaking projects that reach for new possibilities and involve a variety of partners who together are committed to increasing the vibrancy and diversity of their communities.

Grants range between $50,000 and $500,000.

Oregon Arts Commission ● Cultural tourism grant - supports activities undertaken by arts or tourism groups – especially projects in which both groups collaborate – designed to increase tourism motivated entirely or in part by the arts-related offerings of a community or region. Up to $10,000 in grant funds. ● Art acquisition grant - provides resources to Oregon visual art institutions and public visual arts collections for the purpose of acquiring seminal works by Oregon visual artists. The Arts Commission will award up to $100,782 in Art Acquisition grants in FY2014.

National Endowment for the Arts ● Our Town grant - for creative placemaking projects that contribute to the livability of communities and place the arts at their core. Matching grants range from $25,000 to $200,000.

Oregon Cultural Trust ● Cultural Development grant - recognize and support significant cultural programs and projects in four broad areas: Access: making culture broadly available to Oregonians; Preservation: investing in Oregon’s cultural heritage by recovering and preserving historic assets and achievements; Creativity: the making and/or presentation of artistic or scholarly work, and the development of artists, cultural experts and scholars; and Capacity: the strengthening of cultural organizations to build stability and generate public confidence. Cultural Development Grants will generally range from $5,000 to $50,000 in fiscal year 2015.

In FY2014, most Cultural Development grants ranged from $5,000 to $35,000.

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Oregon State Parks and Recreation Department ● Oregon Heritage grant - Support of projects for the conservation, development and interpretation of Oregon’s cultural heritage. Priority will be given to projects that preserve, develop or interpret threatened heritage resources and/or heritage resources of statewide significance.

Generally awards are $3,000-$12,000. ● Veterans and War Memorial grant - funding assistance to local governments for the construction and restoration of veterans’ and war memorials. The program will help honor Oregon’s soldiers and veterans by commemorating their service to the country. Awards have ranged from $14,000 to $80,000. ● Local Government grant - for outdoor recreation projects. Development – developing basic outdoor recreation facilities including sports and playfields, picnic facilities, camping facilities or interpretive facilities.

Other potential projects include roads, parking areas and restroom buildings.

• Small Grants – projects with a maximum $75,000 grant request. Up to 15% of funds are available for these projects.

• Large Grant Requests - Other than for land acquisitions, projects with a maximum $750,000 grant request. A Project sponsor may request up to $1,000,000 for land acquisition projects.

Oregon Community Foundation ● Nike Employee Grant Fund - support organizations and projects that are creating a world where physical activity, play and sports are highly valued. Grants are one-year awards totaling between $5,000 and $20,000 each.

Downtown Portland Waterfront Activation Strategy | June 2014

APPENDIX D: SOURCES (All images by Watermark Planning unless otherwise specified.)

Executive Summary Splash page: University of Oregon History Historical images: Vintage Portland, Oregon Historical Society, City of Portland Office of the Auditor Plan Summaries Timeline photos: Vintage Portland, Oregon Historical Society, City of Portland Office of the Auditor Existing Conditions Images: Watermark Planning, Flickr Commons 21st Century U.S. Riverfronts Splash page (Image of Pittsburgh): Brookline Neighborhood Association Boston image sources: The Esplanade Association Columbus image sources: Columbus Development Corporation, Scioto Mile Louisville image sources: Louisville’s Ohio River Waterfront: Real Estate 3000 Pittsburgh Image Sources: Wikimedia Commons

Natural Environment Tanner Springs: Cynthia Goodson, Curtis Hixon Park: City of Tampa Bay Economic Development Cafe under bridge: Flickr Commons Pop up: Urban Arch Now Sunday Parkways: Flickr Commons Recommendations in Place Skatepark: DAO Architecture Hawthorne Bowl: Flickr Commons Moving Forward:Strategic Framework New York City Department of Transportation Other Sources: Lydon, Mike (2012).Tactical Urbanism 2: Short-Term Action, Long-Term Change.

The Street Plans Collaborative. Retrieved from: http://www.streetplans.org

Placemaking Adventure Playground: Hello Louisville Access and Circulation Image sources: Waterfront Park Master Plan (2003) Hudson River: Alle Macht den Rädern (The Urban Cycling Initiative) Grand Rounds Trail: MN Bike Trail Navigator Guthrie’s Endless Bridge:Fisher Dachs Associates Boating Image Sources: Ankeny Dock: City Auditor’s Office, Portland, OR Blues Festival: Waterfront Blues Festival Norfolk Ferry: Elizabeth River Ferry System

APPENDIX D: Sources

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