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Marine Terminal 4: A Case Study of Neighborhood Land Use Conflicts
Working Waterways & Waterfronts Symposium
09/29/10
Presentation Outline
• The Port of Portland in the context of the Portland Harbor
• Marine Terminal 4 as a case study for addressing neighborhood land use conflicts
– Baltimore Woods
– Cathedral Park Rail Conflicts
– Linnton Plan
• Lessons Learned
Port of Portland Overview
• A “Consolidated Port:” Marine and Aviation
• Portland International Airport plus three general aviation airports
• Four marine terminals
• Navigation
• Industrial land development
Port of Portland Facilities
Marine Terminal 4 – Business Lines
Terminal 4
• 280 acres on the Willamette River
• Toyota auto import facility
• Mineral and liquid bulks
Terminal 4 – Toyota Lease Area
Baltimore Woods
LinntonPlan Study
Area
Cathedral Park
Baltimore Woods
• The Conflict: Encroachment from new residential uses above Terminal 4
Encroachment from New Row Houses
Baltimore Woods Synergy
• Recognizing a synergy of Port-neighborhood interests
– Plan to Preserve of open space
• Visual and noise buffer
• Preserve threatened trees
– Provision of an off-street trail
• Provides a north-south trail connector
• Provides safe view points of marine terminal
– Opportunity to work together collaboratively
Baltimore Woods Concept
Port Support of Baltimore Woods
• Funded two student interns plus production costs to produce concept plan
• Provided historic photos
• Supported grant funding requests
• Volunteered staff in support of the effort
Baltimore Woods-Results to Date
• Property acquisition
• Change to allowed zoning density
• Baltimore Woods trail designation
• A “feel good” project that supported by many governmental & nonprofit organizations
• Improved working relationship on other issues, including Cathedral Park rail conflicts…
Cathedral Park Rail Conflicts
• The Conflict: Primarily rail noise in the Cathedral Park part of St. Johns neighborhood
• Rail is a part of St. Johns neighborhood history
• What has changed to create rail conflict more recently?
Historic Rail Presence in St. Johns
Cathedral Park Rail Conflict
• Causes for recent rail conflict in Cathedral Park
– Redevelopment of the Toyota facility in 2003
– Changes to FRA (Federal Rail Administration) requirements in 2005
– Changes to City zoning/comprehensive plan (St. Johns/Lombard Plan-2004)
Cathedral Park Rail Conflict • Housing• Crossings • Recreation
Cathedral Park Rail Conflict
• Port Proposed Solution: Creation of Whistle Free Zone
• What is a Whistle Free Zone ? – A segment of a rail line where the locomotive horn is
not routinely sounded at public road/rail grade crossings
– Minimum ½ mile corridor where all crossings are protected using Supplementary Safety Measures• Gates• Flashing lights • Medians • Other protective devices
Cathedral Park Whistle Free Zone
Port Interest in Whistle Free Zone
• Good neighbor policy
• Business retention
• Recognition of Rail as a key Port asset
•Perception of a Freight rather than a Neighborhood livability issue•Lack of Neighborhood ownership•Lack of railroad focus•Cathedral Park as the “redheaded step child” vs. other WFZ proposals •Funding
•Regional•Federal (FRA)
•Ultimately a problem of developing a solution in advance of building support
Next Steps & Challenges in the WFZ
Linnton Plan
• The Problem: 400-unit housing proposal in the heart of the working harbor
Linnton Plan-Difference in Perspectives
LinntonNeighborhood
Terminal 4
Tank Farm
Tank Farm
LinntonPlan
StudyArea
Linnton Neighborhood View
•Neighborhood-oriented town center•Buffer from industrial uses•Access to waterfront•Natural resource enhancement
Linnton Plan-Industry View•Conversion of industrial land supply•Protection of industrial operations
•Safety & security•Threat to existing infrastructure•Precedent for similar proposals
Unique Convergence of Infrastructure in Linnton
Portland Harbor Energy Cluster (in blue)
Response by Port & Industry
• Initial Response – Issue initially for two adjacent companies– Port & other harbor businesses soon became alarmed by
proposal
• Need for broader response recognized– Broader implication – multiple industry impacts– Dispersed attention – point is to spread exposure and not have
everyone focus on the “poor energy companies”– Wider base of harbor businesses and government
• Impetus to create the Working Waterfront Coalition (WWC)
City Review Process
• Staff recommends mixed use• Planning Commission recommends
mixed use:– Additional housing– Infrastructure upgrades– Transportation improvements
• City Council overturns PlanningCommission
– Unsafe for housing– Security issues– Mediation
City Council
Planning Staff/Planning Commission Recommendation
• Mixed use (residential w/ light industrial on either end)
Process Outcome
Neighbors• Remain dissatisfied with outcome• Adverse relationship• Lost opportunity for mutual gains
Working Waterfront Coalition• Satisfied with outcome• Continue to invest in working with
neighbors and city• Lost opportunity for mutual gains
Lessons Learned-Linnton
– Coalition based efforts were critical to political outcome– Local response versus “corporate”– Costs are high, but worthwhile– Confrontation can create future problems– Policy important, but situational analysis even more so in this case
Lesson Learned-3 Conflicts
• Identify your core issues
• Find partners invested in shared issues
• Understand how much you are willing to invest
• Develop a shared response to conflict
• Neighborhood collaboration is clearly preferred but,
• Fight if all else fails and issue is important enough