VANCOUVER/WILLIAMS CORRIDOR INFILL STRATEGY · geri washington, ejag elizabeth waters, consultant vancouver/williams corridor infill strategy april 2000 consultant team barney & worth,

VANCOUVER/WILLIAMS

CORRIDOR

INFILLSTRATEGY

VANCOUVER/WILLIAMSTASK FORCE

APRIL 2000

VANCOUVER/WILLIAMS CORRIDORINFILL STRATEGY

The Vancouver / Williams CorridorInfill Strategy will serve as the

community’s “collective vision” toguide future Corridor development.

The strategy balances key communityobjectives: to promote opportunitiesfor mixed use development, commer-cial and industrial job creation, andaffordable housing. It was preparedby and for the community through a

public process that supports andenhances the Albina Community Plan

and neighborhood plans for Boise,Eliot and Humboldt Neighborhoods.


VANCOUVER/WILLIAMS TASK FORCE

SHEILA HOLDEN, CHAIR, Pacific PowerPAUL ANCTIL, Anctil Heating & CoolingCHARLES BEDFORD, Going Street Market

PAULINE BRADFORD, Eliot Neighborhood ResidentBOB BRESEE, Electrical Dimensions

LAILA CULLY, Oregon Economic & Community Development DepartmentMIKE CUPP, Red Cross

SUE DONALDSON, Portland Parks & RecreationCARL FLIPPER, Humboldt NeighborhoodJORGE GUERRA, OAME Cascade Plaza

MARCIA GWYNNE, Boise Neighborhood AssociationALAN HIPOLITO, Urban League of Portland

NORMAN KECK, Shepler RefrigerationTOM KELLY, Neil Kelly

PAUL KNAULS, Geneva’s Shear PerfectionLYNN KNOX, Bureau of Housing & Community Development

LYDIA LUNDBERG, Corridor Property OwnerBEVERLY MILLERGEORGE SCOTT

CRAIG SNODGRASS, C.E. Snodgrass ConstructionJACKIE STRONG, Ma & Pa Strong’s

LUTHER STRONG, Corridor Property OwnerCORNELIUS SWART, Eliot Neighborhood

CARL TALTON, PGEGERI WASHINGTON, EJAG

ELIZABETH WATERS, Consultant


APRIL 2000

CONSULTANT TEAMBARNEY & WORTH, INC.

BROWN-KLINE & COMPANYE.D. HOVEE & COMPANYLLOYD D. LINDLEY, ASLA

CHRISTINE RAINS GRAPHIC DESIGNJ.M. WOOLLEY & ASSOCIATES

PORTLAND DEVELOPMENT COMMISSIONMARTIN BRANTLEY, Chair

FELICIA TRADER, Executive DirectorALEX DORSEY, Project Manager

The Vancouver/Williams Task Force gratefully acknowledges the contributionsof many citizens who participated in development of this strategy.


TABLE OF CONTENTS

1. SUMMARY 1

Introduction and Overview 1

Background 3

Historic and Cultural Significance 4

Community Involvement: How it Shaped the Strategy 7

Corridor Vision 10

Guiding Principles for Urban Design & Revitalization 12

2. CORRIDOR OVERVIEW 14

Vancouver / Williams Corridor Study Area 14

Inventory of Corridor Businesses 20

Market Study 23

Future Plans of Area Businesses / Investors 26

3. CORRIDOR DEVELOPMENT PLAN 29

Zoning Review 29

Development Opportunity Sites 32

Analysis of Development Concepts 39

Tools and Policies to Support Corridor Development 41

Case Studies 42

4. APPENDICES 47

Bibliography 47

Chronology: Community Involvement 48

Definitions 49


1SUMMARY

INTRODUCTION AND OVERVIEW

he Vancouver / Williams Corridor in inner North / Northeast Portland is one of Portland’s oldestcommercial districts – serving first as the downtown for the City of Albina, and later becomingthe Main Street for Portland’s African-American community.

The Corridor is strategically located just north of Portland’s Central City, with proximity andready access to key regional transportation routes, employment centers, meeting and entertainmentvenues, and shopping. As a result, the Vancouver / Williams area is now drawing growing numbers ofresidents and also attracting unprecedented attention from investors.

T

Willamette River

Columbia River

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ILLIA

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LLOYD DISTRICT

DOWNTOWN

COLUMBIA CORRIDORSWANISLAND

NORTH

VANCOUVER / WILLIAMS CORRIDOR VICINITY MAP

A community planning effort led by the Vancouver / Williams Task Force has been underway for severalyears to capitalize on this new environment of opportunity for the Corridor. The goal has been torestore and enhance the historic vitality of the Corridor and nearby neighborhoods. Through the TaskForce’s efforts, a shared community vision has emerged for the Corridor – one that is supported by arearesidents and businesses alike.

At the heart of this vision is a strongly held communitywide belief – a desire that existing residents andbusinesses should benefit from new development as it occurs along the Vancouver / Williams Corridor.

The best future for a community is the one it plans for itself —that reflects the common vision and plans of all who live,

work or play there. The best plan is one that is dynamic andcommunity driven. It honors and learns from the community's

past; while turning its strengths, weaknesses, hopes andaspirations into a blueprint for a vibrant, special community.

Sheila Holden,Chair, Vancouver / Williams Task Force

“”

1


The strategy to realize this vision calls for infill all along the Corridor, with development that is compat-ible with the character of the residential neighborhood and existing businesses. Examples of compatibledevelopment acceptable to community members include those types of development for which theCorridor is already zoned:

• Employment: light industrial, job-generating uses• Commercial: neighborhood-scale retail stores, services and offices• Mixed use: projects which combine housing and commercial uses• Residential: infill housing at appropriately zoned locations, to meet the needs of all income levels

Any infill development will require private investment. But, analysis has shown that the private sector,alone, may not be able to fulfill this community vision.

A comprehensive public investment strategy for the Vancouver / Williams Corridor is needed to reinforceand leverage private investment. Public actions must include:

1. A strategy for physical improvements in the public right-of-way to enhance the Corridor’sappeal, establish an identity and gateways for the Corridor, reinforce the pedestrian-friendly environment and commercial nodes, and create a climate that is supportive ofnew business investment.

2. A multi-faceted and sustained program of financial incentives and other tools to aidexisting businesses and new investors.

3. Showcase projects of various sizes that blend private and public investment to establisha high standard for subsequent business and mixed use projects that meet the “guidingprinciples” for the Corridor plan.

VANCOUVER / WILLIAMS CORRIDOR INFILL STRATEGY

IMPROVEMENTS IN PUBLIC RIGHT-OF-WAYPedestrian enhancementsStreet furnitureTransit sheltersStreet trees and landscapingLightingSignageOn-street parkingTraffic pattern / safetyBicycle lanes (realignment)Infrastructure and capital improvementsGateways: at Broadway, Fremont / Cook, and KillingsworthCommercial nodes: at Broadway, Russell, Fremont, Skidmore, Alberta and Killingsworth

FINANCIAL INCENTIVES / TOOLSMatching grantsLow-interest loans; lines-of-credit; guaranteesTax abatementUrban renewalSite assemblyLong-range planningRe-zoning; adjustmentsCode compliance assistance / waiversCleanup of brownfield sites

SHOWCASE PROJECTSContinental Bakery redevelopmentSmall-scale commercial, mixed use project(s)Existing business renovation / expansion

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In January 1996, the Northeast Community Development Corporation (NECDC) management team be-gan to strategically plan for the next focus in its mission to build healthy communities. Noting vacantand underutilized lots on their own street, NECDC surveyed property owners along Williams and VancouverAvenues to determine their plans for the properties. Businesses were asked if they would be interestedin working with other business and property owners to develop a vision for how development shouldoccur along the Corridor. The Vancouver / Williams Corridor Task Force was formed as a result. Stake-holders wanted to ensure the existing residents and businesses have the opportunity to participate inand influence the character of any new development on the Corridor.

Portland Development Commission (PDC) was asked to help seek funds for the Corridor planning effort.Funds from the Bureau of Community Development were allocated to the project in late 1998, with aconsultant team selected in early 1999. Notices were sent out to property owners, businesses andneighborhood associations along the Corridor that a new and expanded Vancouver / Williams Task Forcewas being formed. This expanded Task Force was charged with preparing an infill strategy along theunderutilized Vancouver / Williams Corridor. This group again validated the need to create and reinforcea balanced, diverse Corridor that supports existing business, creates jobs, provides a variety of housingchoices, and allows for opportunities to create a new sense of place along the streets and at majoropportunity sites.

V/W STRATEGY OBJECTIVES

• Involve local residents, businesses, property owners, community-based organiza-tions and other interested community groups to help define a Corridor infillstrategy.

• Define the community’s collective vision for future development in the Vancouver/ Williams Corridor. Find ways to achieve a balance between housing and jobcreation.

• Establish urban design principles that can support and enhance future Corridordevelopment.

• Support and enhance the Albina Community Plan and neighborhood goals,objectives and plans.

• Identify tools and policies to retain and promote appropriate development alongVancouver / Williams, and investigate the influence of zoning policies and otherdevelopment regulations.

• Assess the Corridor’s re-development potential, and pinpoint the most favorableopportunities for development.

• Serve as a catalyst to stimulate development activity that is consistent with thestrategy.

• Identify priority capital improvements that enhance Corridor amenities andsupport redevelopment.

BACKGROUND

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HISTORIC AND CULTURAL SIGNIFICANCE

The Vancouver / Williams Corridor is located in the heart of the historic Albina community – one ofPortland’s oldest neighborhoods, and once an independent City. Many homes and buildings survivefrom the area’s early years.

The Eliot neighborhood and Eliot School are named for Thomas Lamb Eliot, who was the first ministerof Portland’s First Unitarian Church. Active in civic life, Eliot also helped establish the Parry Center,Reed College, Boys and Girls Aid Society, Oregon Humane Society, Portland Art Association and Li-brary Association. He served as superintendent of Multnomah County Schools and as a park commis-sioner, and raised the funds to bring the Olmsted brothers to Portland to design the city’s park system.Other area pioneers included early landowners George H. Williams, also former U.S. Senator andAttorney General; and Edwin Russell, a banker.

Ship building activity at nearby Swan Island began as early as 1840, with Albina providing homes forship builders. An independent river town until it was consolidated with Portland in 1891, Albina wasconnected to Portland by ferries which landed at the foot of Albina Street and Russell Street. After theSteel Bridge opened in 1888, upper Albina became one of the most fashionable centers of the Port-land area.

The character of the Albina community and Vancouver / Williams Corridor has changed over thedecades. This area has been significantly impacted by major redevelopment projects, starting in the1950s. Public and private projects cleared neighborhood homes and businesses to accommodateother uses: Minnesota Freeway (I-5) construction, Memorial Coliseum, and Emanuel Hospital urbanrenewal.

The Vancouver / Williams Corridor once served as the “Main Street” for Portland’s African-Americancommunity. Although the area still retains a significant percentage of minority owned businesses, theimpacts of these major projects have undermined the vitality of the residential neighborhoods andbusiness district.

A multi-disciplinary consultant team, led by Barney & Worth, Inc. was retained to contribute the requiredskills and experience to prepare the Vancouver / Williams Corridor Infill Strategy. Team members contrib-uted expertise in economic development, urban design and planning, public outreach, commercial realestate development, market analysis, and graphic design. The consultant team worked under the guid-ance of an active citizen advisory group – the Vancouver / Williams Task Force – and PDC.

The Vancouver / Williams Corridor Infill Strategy is intended to serve as the community’s “collectivevision” for future development in the Corridor. The strategy has been prepared with, by and for the localcommunity through an intensive public involvement process. It is designed to support and enhance theAlbina Community Plan and the neighborhood plans for Boise, Eliot, Humboldt and other nearby neigh-borhoods.

Let’s honor the history ofpioneering efforts by blackbusiness owners in the area.

Luther Strong,Corridor property owner

“”

4


The historic Cleo-Lilliann Social Club buildingwas built in 1914.

Important chapters of Portland’s African-American history and culture remain present in many build-ings and sites along the Vancouver / Williams Corridor. These landmarks are linked to the lives ofpersons who were significant in the settlement, growth, and changes of the African-American Com-munity – their birthplaces, homes, businesses and churches.

Of equal importance are sites associated with events that have made an important contribution to theAfrican-American history, or that represent patterns of everyday living distinct to Portland’s African-American community. A few examples of historic properties along the Vancouver / Williams Corridorare shown below.

VANCOUVER / WILLIAMS CORRIDOR LANDMARKS

Mt. Olivet Baptist Church Built in 1923Great African-American leaders have spoken at this church –including Phillip Randolph and Marcus Garvey

Billy Webb Elks Lodge Built in 19266 N. Tillamook Continuous African-American ownership

In 1942, became United Service Organization (USO) Center forVanport flood communicationsNAACP meeting house in 1950s

Cleo-Lilliann Social Club Built in 19143041 N. Williams Avenue This is the only structure that remains from the historic Albina

business district. Club founded by Cleo Hampton in 1952.

Pickett Residence Purchased by Sherman & Clara Pickett in 1936.2008 N. Williams Her sons included Portland’s first black dentist and Henri Le Bell –

organist for silent movies

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VANCOUVER/WILLIAMSCORRIDOR

NORTH

Ivy

Broadway

Hancock

San Rafael

Tillamook

Thompson

Sacramento

Russell

Graham

Stanton

Morris

Monroe

Cook

Fremont

Ivy

Beech

Fargo

Failing

Shaver

Mason

Skidmore

Prescott

Going

Blandena

Wygant

Alberta

Sumner

Emerson

Killingsworth

Van

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Van

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William

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Van

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William

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William

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Knott

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ENT 3

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Commercial nodes

Neighborhoodboundaries

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eEl

iot

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To be effective, a community strategy must be shaped by those who count most – the people who live,work, and invest there: “The best future for a community is the one it plans for itself.”

For the Vancouver / Williams Corridor, public participation has been invited at every stage of planning.Citizens’ views have shaped every facet of the Corridor strategy – from vision, to guiding principles, tospecific strategies and recommendations.

Values that guided the community involvement process were:

Accessibility – A variety of ways to promote project awareness and to encourage the commu-nity to participate and influence the planning process.

Inclusiveness – Deep and wide participation that reflected the diversity of people, issues andneeds in the community.

Community-driven – An opportunity for the community to lead and direct a process that re-quired their input, insight and history – both past and present.

The Vancouver / Williams Corridor Infill Strategy was prepared in collaboration with the community.Participants included Corridor area business and property owners, long-time residents and newcomers,neighborhood associations, key city and state agencies, and many interested community organizations.

The Vancouver / Williams Corridor Task Force was formed to oversee preparation of the Corridor Strat-egy. (The Task Force mission is shown below.) The Task Force continued to meet monthly during theproject to guide work of the consultant team.

ROLE OF THE VANCOUVER / WILLIAMS TASK FORCE

To be a catalyst to create a plan for future development of theVancouver / Williams Corridor – based on a shared community visionthat encourages vibrant, mixed use development, supports new in-dustrial and commercial opportunities, and balances business growthwith community needs for affordable housing and job creation.

COMMUNITY INVOLVEMENT: HOW IT SHAPED THE STRATEGY

The Vancouver/Williams Task Force held three public workshops to invitecitizens and businesses to participate in the strategy.

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A key project goal was to involve as many citizens as possible in developing the vision. An extensivepublic outreach effort was initiated. To broaden public outreach, membership in the Vancouver / Will-iams Task Force was extended to representatives of additional area businesses and interested citizens.The result was an expansion of the number, mix and cultural diversity of Task Force members. Among themany community organizations involved in developing the Corridor strategy were: Oregon Associationof Minority Entrepreneurs (OAME), Urban League, Northeast Community Development Corporation(NECDC), Northeast Alliance, along with the Boise, Eliot and Humboldt neighborhood associations.

A series of public events widened participation beyond the Task Force meetings. Public events duringthe planning included a Corridor tour, three public workshops, and a special meeting for business andproperty owners. These sessions were designed to offer community members a chance to “roll up theirsleeves,” and become directly involved in the planning process.

Steps taken by the Task Force and consultants to involve the community in preparing the Corridor strategy:

• Sent public notice mailings and meeting notices to nearly 1,000 businesses, residents,property owners and targeted community groups in or near the target area.

• Attended meetings of neighborhood and business associations to brief their members.

• Walked the Corridor, expanding into neighborhoods several blocks east and west, toleave notices of upcoming public meetings and to encourage participation.

• Met with and interviewed selected businesses and property owners to further identifyneeds and issues, and provide information and clarification as requested.

• Posted flyers at strategic and familiar community locations where people congregate and visit.

• Placed brief news articles in community newspapers including the Asian Reporter,Hispanic News, Observer, and Skanner.

• Issued news releases to local community newspapers – the Observer or Skanner.

• Included public notices in the Oregon Association of Minority Entrepreneurs (OAME)monthly newsletter, a publication targeting minority entrepreneurs.

As a result of these steps, participation continued to rise during the planning. A total of 145 citizensdirectly participated in the planning, and more than 60 citizens attended the final public workshop.

VANCOUVER / WILLIAMS CORRIDORCOMMUNITY OUTREACH

3 Broad-based citizen Task Force

3 Survey of Corridor business and property owners

3 Surveys of citizens and interested groups

3 Walking tours of the Corridor to meet business owners and residents

3 Posters and flyers at strategic locations

3 Neighborhood association briefings

3 Three public workshops

3 Workshop for business and property owners

3 News releases and articles for community newspapers – Observer, Skanner,Asian Reporter, Hispanic News

8


COMMUNITY MEMBERS AGREE . . .

1. Vancouver / Williams Corridor should remain a balanced,mixed use area.

2. As the Corridor develops, steps must be taken to preventdisplacement of existing residents and businesses.

3. Improvements in the public right-of-way will support privateCorridor infill development.

4. Area businesses also need technical and financial assis-tance to participate fully in Corridor revitalization.

Task Force members walked the Corridor to meet businessowners and tour development sites.

“

”Participants – area residents, as well as business owners and others – combined their diverse back-grounds, and offered different viewpoints. Despite their differences, participants reached consensus ona vision and guiding principles to guide the Corridor strategy.

This shared vision for the Vancouver / Williams Corridor which unites the citizens who joined in theplanning is described in the next section. Key points of agreement are shown below.

We appreciate the considerableeffort to work with dozens of

citizens representing a range ofinterest groups. We commend your

patience and endurance. You’vedone a good job eliciting

stakeholder concerns, issues, ideasand values to develop the corridor

urban design principles.

Kay Newell,Boise Neighborhood Association

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CORRIDOR VISION

The community’s shared vision for the Corridor is a future that embraces and reinforces this distinctcultural history and unique identity and emphasizes a balanced approach to development, allowingexisting residents and business owners to enjoy and participate in the benefits of long-awaited favor-able economic trends – without being displaced.

The vision for Vancouver / Williams Corridor also incorporates other key principles:

• Continuing a mix of residential, commercial and employment uses

• Clustering new business development to reinforce existing commercial “nodes”

around the major intersections: at Broadway, Russell, Fremont, Skidmore, Alberta

and Killingsworth

• Ensuring that infill projects are developed at a scale that is appropriate for this

residential/mixed-use Corridor

• Creating a more aesthetically pleasing pedestrian-friendly environment

• Buffering the surrounding residential neighborhoods from business-related impacts

• Providing local employment and wealth-creation opportunities for area resi-

dents and property owners

This community vision for the Vancouver / Williams Corridor is detailed further in Guiding Principles forUrban Design and Revitalization, outlined in the next section.

Most past developments have benefited Portlandcity-wide, and not the folks in our area. I want to

see future development create wealth for inner cityresidents who have weathered the good and bad

times of the past 40 years.

Pauline Bradford,Eliot neighborhood resident

“”

Improvements in the public right-of-way can contributesignificantly to revitalization of the Vancouver / WilliamsCorridor.10


Community participants in the Corridor planning envisioned many specific improvements to achievetheir shared vision for the future. Examples of the personal elements which contribute to this sharedvision are shown below.

StreetscapeTree-lined streets and landscaping

Building designs that reflect the Corridor’shistoric character and accommodate newmixed-use development

More well-lit bus shelters at appropri-ate locations

Historic street lamps with warm lighting thatcreates a secure, pedestrian friendly environment

Safe bike lanes that do not prohibit parking forbusinesses or residents

Partnership with small businesses to addressseismic and building code standards

Grants for storefront improvements

Tax abatement

Urban Renewal eligibility making availabletools for use by community residents andbusinesses to realize their shared vision

COMMUNITY VISION: VANCOUVER/WILLIAMS CORRIDOR

Incentives for Development

I’d like to see developments designed to create asense of open space using windows, lighting, andlandscaping, and provide access for people whoare disabled or elderly … new businesses should

revitalize the feeling of community.

Deborah Parker,Corridor property owner

“”

Commercial infill development that

fits within neighborhood character,

quality and density

Businesses located within walking dis-tance that cater to the character of eachsegment

Community yellow pages

More local employment for area residents

Commercial Development

Public subsidies that yield public benefits

Fareless Square extended to Killingsworth

Increased transit service – better service,longer hours

Increased minority home and businessownership

Capacity added to freeway off-ramp atNorth Cook

Cooperative and innovative governmentagencies that find and provide funds and in-centives to implement the Corridor strategy

Funds to clean up brownfield sites

Public Actions

HousingBalanced housing by type and income – includ-ing single family homes, multi-family, housingoptions, apartments, lofts, live-work

Residential densities adequate to supportviable neighborhood commercial businesses

Housing affordability maintained

Gateways and Nodes“Corridor Gateways” at Alberta, Skidmore,Fremont, and Broadway

Reflect character of each segment

Street banners

Appealing architectural treatments that arevisible from cars

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Development Mix New and redevelopment projects should support and reinforce a vertical andhorizontal mix of industrial, commercial, retail and residential uses and providequality design, compatible with the existing character of building in the Corri-dor, creating a balance in the Corridor and ensuring preservation and affordabilityof neighborhoods.

GUIDING PRINCIPLES FOR URBAN DESIGN AND REVITALIZATION

The following Guiding Principles were adopted by the Vancouver / Williams Task Force to guide anddirect the Corridor Infill Strategy, consistent with the community’s shared vision.

Distinct Segments The Corridor should not look the same throughout; acknowledge existing nodesand segments; include community services; reinforce existing zones.

Commercial Nodes Serve neighborhoods within easy walking distance of housing, (ideally no fur-ther than 1/

4 of a mile apart), provide adequate safe turning lanes, and include

existing light industry. Development within commercial nodes should be sup-portive of neighborhood residents and users.

Connectivity The Corridor should enable convenient passage and bindthe neighborhoods and commercial areas to the eastand west. It is a north/south connector and thetransportation system should easily accommo-date multiple modes.

Connectivitybetween modesalong theCorridor.

Connectivity between neighborhoodsand the Corridor.

Gateways Enhance distinctive identity of various segments of the Vancouver / WilliamsCorridor. Include street plantings, street trees, light and banner poles. Architec-tural treatments should be noticeable from vehicles traveling along the Corridor.

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Parking Provide appropriate amount and location of various parking options to supportadjacent commercial areas; minimize neighborhood impact; enhance commer-cial and housing development.

Transitions Create transitions to buffer and protect adjacent neighborhoods.

From left to right,building heightsstep down to theCorridor andadjacent residentialneighborhoods.

Commercial/Retail toSingle Family Residence

Aesthetically Include street trees, wide sidewalks, special paving; focus on commercial andresidential development areas, appropriate design for specific areas to ac-commodate cars, transit, bikes, pedestrians, residents, and safe crossings.

pleasing,pedestrian-friendlyenvironment

Transportation Provide local multi-modal transportation improvements emphasizing local ser-vice that connects to the regional transportation system; providing neighbor-hood supportive access while creating and managing safe, pedestrian-friendlyintersections at nodes.

Existing Businesses Enhance, protect and develop the wealth and viability of existing businesses whilecreating incentives that recruit and retain new businesses and generate family-wage jobs.

Historic and Cultural Preserve and enhance the historical and cultural character and history of the corridor.

Recruit new businesses and retain existing businesses that generate family wage jobs.

Preservation

Job Creation

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2

The project area is within a 5-10 minute drive of downtown Portland, the PDX international airport,several major employment centers (Swan Island, Columbia Corridor, Lloyd District), and the region’s keyvisitor and spectator facilities: Oregon Convention Center, The Rose Quarter, and Expo Center. Importantcommunity institutions are located in the Vancouver / Williams Corridor and nearby, including EmanuelHospital and Portland Community College Cascade Campus.

CORRIDOR OVERVIEW

Early in the project, the consultant team defined sub-areas or “segments” of the Vancouver / WilliamsCorridor study area to allow evaluation of targeted commercial development strategies. Task Force mem-bers – Vancouver / Williams area business owners and neighborhood leaders, and interested citizens –contributed their local knowledge to help define segments. The segments were defined using the fol-lowing criteria:

• Zoning patterns as approved in the Albina Community Plan

• The pattern of existing businesses and other land uses

• Recognition of existing commercial nodes: at Broadway, Russell, Fremont,Skidmore, Alberta, and Killingsworth intersections

• Location of key traffic routes

Four segments were identified using these criteria (numbered from south to north):

SEGMENT 1BROADWAY TO RUSSELL

The southern end of theVancouver / Williams Corridor isalmost fully developed. There aremany existing light industrial andcommercial businesses – aboutone-third of Corridor businessesare located here. But there are fewvacant development sites, andwhat vacant / redevelopable landexists here is zoned for medium-to high-density housing. Busi-nesses in this part of the Corridorserve outside customers – there arealmost no retail or service busi-nesses which serve the residentialneighborhoods east of Williams.

Historic Mt. Olivet Baptist church located near Segment 1.

TVANCOUVER/WILLIAMS CORRIDOR STUDY AREA

he Vancouver / Williams Corridor project area includes:

• The length of Vancouver Avenue and Williams Avenue, running north from Broad-way to Killingsworth.

• Sites fronting on Vancouver and Williams, within these boundaries.

• Commercial development “nodes” around six key intersections: at Broadway,Russell, Fremont, Skidmore, Alberta, and Killingsworth.

The Vancouver / Williams Corridor parallels the MLK Jr. Blvd. Corridor to the east, and is located justnorth of the Rose Quarter and Lloyd District. Elsewhere, it is surrounded by residential neighborhoods.

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Segment 3 has the greatest concentration —nearly half — of all Corridor businesses.

Segment 4 development is characterizedprimarily by single family homes.

SEGMENT 2RUSSELL TO COOK

The southern end of this segment, near RussellStreet, was historically the center of the African-American business community. Today, land useshere are primarily institutional, with much of theland controlled by Emanuel Hospital. Other largelandowners include Red Cross, Continental Bak-ery, and churches. This segment contains theCorridor’s only city park – Dawson Park. It alsohas the largest development sites – most of thevacant and redevelopable land is zoned for hos-pital related uses and/or high density housing.

SEGMENT 3COOK TO SKIDMORE

This area holds almost one-half of all Corri-dor businesses, with a variety of small com-mercial, light industrial, single-family residen-tial and institutional uses. There are severalmedium-to-large vacant and redevelopablesites, with most zoned for employment /mixed use. This segment has the largestnumber of minority-owned businesses, andis anchored by the OAME (Oregon Associa-tion of Minority Entrepreneurs) Business Cen-ter which houses 20+ minority, women andemerging small businesses.

SEGMENT 4 SKIDMORE TO KILLINGSWORTH

This is the most residentially-oriented seg-ment, located at the northern end of theCorridor. Uses consist mainly of single-fam-ily and multi-family housing (multi-familyis concentrated north of Alberta), and so-cial services. There are also some commer-cial uses at the key commercial nodes: atSkidmore, Alberta and Killingsworth. Mostof the redevelopable parcels are zoned forcommercial use.

Dawson Park provides a serenecenterpiece for Segment 2.

The segments enabled the project team to evaluate the special needs and opportunities of each sub-area, and to design targeted infill strategies tailored to meet the unique character and conditions of eachsegment.

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Russell

Sacramento

Tillamook

Hancock

Broadway

Thompson

San RafaelVancouver

William

s

R1

R1CS

EXd

EXd

EXd

CXd

RHd

R1d

NORTH

SEGMENT 1BROADWAY

TORUSSELL

• Many estab-lished smallbusinesses —about one thirdof corridor total

• But, few retailor servicebusinesses hereto serve nearbyresidential area

• Little vacant/developableland

• Most vacantsites zoned formedium-highdevelopment

• Potentialcommercialnode at Russell

• Corridor’ssoutherngateway atBroadway

Urban League Plaza

UnthankPlazaApartments

BillyWebbElksLodge

16


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Ivy

Cook

Fargo

Monroe

Morris

Stanton

Graham

Knott

Russell

Ivy

R1

1Rd

OSdR1d

EXd

RXd

R1d

CGdCG

1Rd

SEGMENT 2RUSSELL

TOIVY

NORTH

• Historically,the center ofthe African-Americanbusinesscommunity

• Hospital-related usesnow domi-nate land usein this seg-ment

• Corridor’slargestlandownersare in thissegment:Emanuel,Red Cross,ContinentalBakery,affordablehousingprojects

• Vacant landon Emanuelcampus zonedfor hospital-related uses orhigh densityhousing

• Commercialnodes atFremont andSkidmore

ContinentalBakery

AmericanRed Cross

Vancouver Ave.Baptist Church

Cleo-LilliannSocial Club

ImmaculateHeart Church

Quad Inc.

Myers CourtApartments

Vancouver

William

s

17


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Skidmore

Mason

Shaver

Failing

Beech

Fremont

Ivy

Van

cou

ver

William

s

R2.5a R2.5a

EXd

EXdR1a

R1d R1d

R2.5a R2.5a

SEGMENT 3IVYTO

SKIDMORE

NORTH

ContinentalBaking Co.

Oregon FoodBank

Jesuit VolunteerCorps

N.E. WorkforceCenter

OAME CascadePlaza

NortheastCommunityD e v e l o p m e n tCorp.

FremontManorApartments

• Contains almosthalf of allCorridorbusiness

• Mix of smallcommercial,light industrial,single-familyresidential uses

• Vacant landincludes largeredevelopablesites zoned foremployment/commercialuses

• OAME BusinessCenter houses20+ smallbusinesses —emerging,minority andwomen-owned

• Commercialnodes atFremont andSkidmore

• Corridorgateway atFremont/Cook

Ivy18


SEGMENT 4SKIDMORE

TOKILLINGSWORTH

NORTH

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Killingsworth

Emerson

Sumner

Alberta

Wygant

Blandena

Going

Prescott

Skidmore

R2.5a

Wygant

Blandena

Going

Wygant

Humboldt

Moo

re

R1a

CSd

CO1

CS

CN2

R1a

OSd

EXd

• Containshousing andsocial services,with somecommercialuses concen-trated at nodes

• Vacant/redevelopableparcels nearkey nodeszoned com-mercial

• SubsidizedhousingconcentratedbetweenAlberta andKillingsworth

• Commercialnodes atAlberta andKillingsworth

• Corridor’snortherngateway atKillingsworth

OverstreetPowerhouseTempleChurch

PortlandMiracleRevivalChurch

Albina HumanResourcesService Center& Parking

Salvation ArmyCommunity Center

BethesdaChristianChurch

Vancouver

William

s

19


INVENTORY OF CORRIDOR BUSINESSES

Early in the project, the consultant team completed an inventory of Vancouver / Williams Corridorbusinesses, using a windshield survey, review of property ownership, and other sources. Members of theVancouver / Williams Task Force assisted in checking the inventory for omissions and updating thepreliminary results.

The inventory identified 79 Corridor businesses, along with 152 other land uses: including hospitals andrelated health care services, social services / non-profit / governmental organizations, churches and reli-gious groups, and multi-family residential uses. (Note: Single-family residences were not inventoried.)

Vancouver / Williams Corridor Business and other uses are shown on the accompanying map and sum-marized below. The inventory is also organized by segment, and compiled in a database with addressesand phone numbers, facilitating communication with area businesses and institutions.

VANCOUVER / WILLIAMS CORRIDOR BUSINESSES

Food/Groceries 3Eating/Drinking 6Automotive/Gasoline 12Personal Services 4Retail 7Professional Services/Consulting 18Construction/Industrial/Other 29

Total 79

The Vancouver / Williams Corridor includes manylocally- and minority-owned businesses and sites.

That’s the beauty of Ma andPa shops, they know the

people in the community.

Jennie Portis,Northeast Workforce Center

“”

20


Cook

Fargo

Monroe

Morris

Stanton

Graham

Knott

Russell

Best Window Covering &Manufacturing

Realty Sign Placement, Inc.

Big Fam-Fam’s Restaurant

Tropicana Restaurant

American Red Cross DisasterServices Center

Sharon’s Bible Temple

Pillow Talk Boutique

Cleo Lillian’s Social Club

Reynolds Medical Office Building

Emanuel Childcare Center

Immaculate Heart Church

Cathay Grocery

St. Vincent De Paul EmanuelPlaza Apartments

CH2A & Associates

Quad Inc. MyersCourt Apartments

Bakery Thrift Shop

American Red CrossParking Lot

American Red Crossof Oregon

Vancouver AvenueBaptist Church

Dawson ParkApartments

Portland OrthopedicCenter/Emanuel

Rehabilitation Center

Emanuel HospitalParking Garage

The Surgical Center/Portland Women’s

Clinic

Emanuel Hospital

Emanuel HospitalParking Lot

Emanuel HospitalVacant Land

Vancouver

William

s

Vancouver

William

s

Dawson Park

Russell

Columbia GorgeModel Railroad

Vancouver Apartments

Gerlock TowingHolding Lot

RemarketingConcepts

Brown Printing Co.

Footwear InternationalSpecialties

N.W. Dental Inc.

Tice Industries

Metal Work Machining

Portland Packaging Co.

Portland PackagingHolding Yard

Vacant Building

Sargents Towing Co./Sargents Auto/

Japan’s EngineeringTechnologies/

Jet Automotive

Evans Components Inc.

Private Office Building

Urban League PlazaOffices/Apartments

Unthank Plaza Apartments(HAP)

Chuck’s Market/J & S Grocery

Portland Tissue Processing Lab

Communications Oregon Inc.

Barbara Maher ApartmentBuilding

Competing Motorsport Inc./Printer Parts N.W. Store

Pacific Coast Awning Co.

Akhurst Machinery Inc.

Vacant Building

Wagstaff Battery Co.Vacant Building

Residential Rehab Centerproposed for this site

Billy Webb Elks Lodge

Rokstock

J. Marks Production Studio

G.T. Gordan & Assoc.

Portland Valve & Fitting Co.

R.H. Brown & Co.

Coastal Machinery Co.

Consolidated Supply Co.

Coliseum Ford Holding Lot

Syncor International Inc.

Texaco Gas Station

Vancouver

William

s

Vancouver

William

s

Philbin RebuiltProducts Inc.

Sloan’s Cafe

Sloan’s Body & Paint

Sacramento

Thompson

Tillamook

San Rafael

Hancock

Broadway


BUSINESSES ANDINSTITUTIONS

BROADWAYTO

FREMONT

NORTHFremont McCullough’s Car Wash

and Detailing

Continental Baking Co.

Buck O’Kelly Furniture

Ivy

SEGM

ENT 2

SEGM

ENT 1

SEGM

ENT 3

21


Skidmore

Mason

Shaver

Failing

Beech

Fremont

OAME Cascade Plaza:B & N ManufacturingS. Brooks & AssociatesCertech Engineering Inc.Cookies & MoreDesign-A-Weld, Inc.Dianes GemsIAM CaresIPM TechnologiesJEC Mechanical Inc.Knit Core ServicesMa & Pa Strongs CafeMagnetic Attraction Inc.Portland Youth GolfRAJRockos RepairTelephone ElecronicsThe Warner Group

N.E. Workforce Center

C.E. Snodgrass Inc.

Scientific Research, Inc.

Constructavision/Messick& Lee Inc.

Shepler Refrigeration Inc./Electrical Dimensions Inc./Shepler Engineering Inc./C.E. Snodgrass Construction Inc.

Jenkins Auto Service

Jesuit Volunteer Corps Northwest

Cutting Edge Custom Cabinets

Rainbow Fun Center VacantBuilding

Oregon Food Bank VolunteerAction Center

Sportman’s Barber Shop

House of Sound

Williams Street Market

Louise Memorial DayCare Center

Northwest Tire Co.

Fleming Auto Parts

Apollo Auto

McCullough’s Car Washd ili

Northeast CommunityDevelopmentCorporation

Shepler’s StorageLot

Evangelical MinisteriesInternational

True Vine MissionaryBaptist Church

Royal EsquireRestaurant & Lounge

Fremont ManorApartments

Vancouver

William

s

Vancouver

William

s

Killingsworth

Emerson

Sumner

Alberta

Going

Vancouver

William

s

Vacant Store Fronts

Vacant Building

Salvation Army CommunityCenter

Salvation Army Center forWorship and Service

Northwood Apartments

Vann’s Funeral Home

Albina Human ResourcesService Center(State of Oregon)

Abdullah Sharif/Commonway Institute/Three Valleys Project

Portland Miracle RevivalChurch

Vacant Building

Overstreet Powerhouse TempleAnnex

Frieberg Electric Co.

Broadous Auto Service

Naim’s Hair Connection

Going Street Market

Vacant Building

Overstreet Powerhouse TempleChurch

First AME Church

Antil Heating & Cooling/Antil Sheet Metal

Abbot & Simpson Roofing

Blandena

Wygant

Holiness or Hell Church ofGod in Christ

Second Hand Store

Vacant Building

Vacant Paved Lot

Blue Nile Sewing Co.

Community Advocates/Kids Can/Community

Safety & Self

North Portland NursingClinic

Bethesda Christian Church

Cambridge CourtApartments (Central City

Concern)

Sumner Court Apartments(HAP)

Royal Rose CourtApartments (HAP)

North Portland BibleCollege

Berean Baptist Church

Vancouver

William

s

Prescott

Going

Blandena

Wygant

Humboldt

Wygant

Webster

Roselawn


BUSINESSES ANDINSTITUTIONS

FREMONTTO

KILLINGSWORTH

NORTH

SEGM

ENT 4

SEGM

ENT 3

22


WHAT’S COVERED IN THEVANCOUVER / WILLIAMS CORRIDOR MARKET STUDY

• Identification of study area

• Housing characteristics

• Employment in study area

• Home-based work trends

• Commercial characteristics

• Competitive position for Vancouver / Williams Corridor

• Potential market opportunities and business

NORTH

MARKET STUDY

A key component of the Vancouver / Williams Corridor Infill Strategy is the market study, prepared byeconomists from E.D. Hovee & Co. in September 1999. The study evaluates current and emerging trendsfor the Vancouver / Williams Corridor. The market study covers area demographics (population character-istics), economics, and business activity. The study is based, in part, on other comprehensive marketanalyses performed for the same trade area. Results of the Vancouver / Williams Corridor market studyappear in a supplemental report.

The purpose of the market study is to identify and evaluate demographic and socio-economic markettrends, and to highlight opportunities which may influence future development in the Vancouver / Wil-liams Corridor trade area. This study also provides a market context for the evaluation of Vancouver /Williams Corridor segments and formulation of appropriate business development strategies.

18th

Ave

.

Alb

ina

Ave

.

15th

Ave

.

34.01

Vanc

ouve

r A

ve.

Will

iam

s A

ve.

MLK

Blv

d

Willam

ette River

Greeley

The market analysis begins by identifying the study area (or immediate trade area) for the Vancouver /Williams Corridor – the geographic area surrounding the Vancouver / Williams business district.

Killingsworth St

Prescott St

Fremont St

Thompson St

SEGMENT 4 I-5

34.02

Skidmore St

SEGMENT 3

SEGMENT 2

SEGMENT 1

Broadway

22.01

22.02

23.02

Cook St

Russell St

VANCOUVER/WILLIAMSCORRIDOR STUDY AREA

23.01

23


VANCOUVER/WILLIAMS CORRIDORSTUDY AREA

Population (1997) 9,434Households (1997) 3,855Median Household Income (1996) Eliot Neighborhood $15,280 Boise Neighborhood $20,567 Humboldt Neighborhood $23,338

Housing (1997) Single Family 2,407 Multi-Family 2,253 Total 4,660

Median Housing Price (June 1999) $115,000

Employment (1996) 24,687

Local Employment (1996)* 7,296

* Excludes Rose Quarter/Convention Center/Lloyd District and Lower Albina

VANCOUVER / WILLIAMS CORRIDOR STUDY AREA

The Vancouver / Williams Corridor study area includes the portion of the Corridor identified by the TaskForce for the infill strategy, and adjacent areas which represent the immediate market for Corridorbusinesses. The study area — shown on the accompanying map — is generally bounded by Killingsworthto the north, the Banfield Freeway on the south, Rev. Martin Luther King, Jr. Boulevard and 7th Avenue tothe east, and the Willamette River / I-405 Bridge / Mississippi and Albina Avenues on the west. To easedata compilation the study area conforms to census tract boundaries.

Within this study area, the market analysis evaluates current market conditions and future market po-tential. Key elements cover:

• Housing characteristics – covering indicators of housing trends: existing housing stock,recent development, sales price, rental rates, and apartment vacancy trends.

• Commercial characteristics – recent business sales, and commercial lease rates.

• Economic factors – including current number of jobs, employment patterns and markettrends: place of work, employment growth, and home-based work trends.

Results of the market study confirm and explain many of the promising signs which can be observed todayin the Vancouver / Williams Corridor. After two decades of population decline, the number of householdsand residents rebounded in recent years. Population in the area is growing. Looking ahead, a 45%increase in households in the study area is forecast by Metro over an 18-year period (1997 - 2014).

Housing sales and home prices are also up. Development of single family and multi-family residences ison the upswing in the Vancouver / Williams Corridor. Home sales prices are appreciating – up 10% peryear from 1996-99, compared with an average 6% annual increase in the metro area. Apartmentvacancy rates are increasing, but remain below the region-wide average of 6% (1999).

24


Economic factors look good, too. The area has more jobs (25,000) than residents (9,400). As a result,with so many jobs available nearby, many area residents continue to work close to home. With morearea residents at work, real median household incomes (adjusted for inflation) are rising in the Vancouver /Williams Corridor, growing 9% to 39% in area neighborhoods from 1990-96.

RESULTS – VANCOUVER / WILLIAMS CORRIDORMARKET STRATEGY

• Vancouver / Williams Corridor is experiencing new single and multi-family housing construction – 280 new units in 1990-97.

• A 45% increase in market area households is forecast by 2015.

• Home sales prices increased 10% per year (1996-99), faster than the 6%regional average.

• The Vancouver / Williams study area has more jobs (25,000) than resi-dents (9,400). A high percentage of area residents work close to home.

• Area incomes remain below the regional average – but they’re catchingup fast. Median household incomes in Corridor neighborhoods (ad-justed for inflation) rose 9-39% from 1990-96.

• This increased retail purchase power could support new businesses.

• Commercial lease rates in the study area remain affordable:Retail $6 – $15/sfOffice $4 – $11/sfRecent $10 – $12/sf (Retail/office on MLK Jr. Blvd.)

Increased employment and incomes contribute to increased buying power for area residents. The “effec-tive buying income” for a market area which includes the Vancouver / Williams study area is estimated toincrease by 26% (in real inflation adjusted dollars) over the 20-year period through 2015.

The market analysis also indicates that the market is under served by some types of businesses. Gapsbetween consumer demand and the offerings of existing businesses have been identified for food stores,restaurants, specialty retail, and business services.

New housing stock in Vancouver / Williams Corridor.

25


VANCOUVER/WILLIAMS CORRIDOR BUSINESS OPPORTUNITIES

DEMAND GAPS

• Food stores – supermarket and neighborhood groceries

• Eating places – restaurants and refreshment places, from coffeeand sandwich shops to full-service restaurants

• Specialty retail – drug stores, sporting goods, gift and novelty

• Business services – combination service providers such as Kinko’s,building cleaning and maintenance, and others

LINKAGES

• Health technology and biotechnology (including clinic, research,and production space)

• Food processing (particularly for niche products)

• Construction and special trade services (office and equipmentspace)

• Information services (multimedia, graphic communications,software, product support / call centers)

• Warehousing and distribution (including showroom space)

There are also opportunities for linkages that draw upon the Vancouver / Williams Corridor’s strengths: prox-imity to I-5 and I-84; location near major employment centers; key institutions in or near the Vancouver /Williams Corridor; affordable building space and land.

The accompanying table highlights demand gaps and linkages that represent possible opportunities forVancouver / Williams business infill development.

Redevelopment and development along theVancouver / Williams Corridor provides an

opportunity to complete the promise of wealthcreation and jobs in the most diverse area of the

city of Portland, forty years ago and today.

Sam Brooks,Northeast business owner

“”

26


FUTURE PLANS OF AREA BUSINESSES

The Vancouver / Williams Task Force conducted a survey of Corridor businesses — including many minor-ity-owned businesses —to gain their views on potential for future infill development. Area businessesand property owners were also invited to attend a kickoff meeting that focused on issues of interest tobusiness investors.

Survey results, based on 31 responses from a cross-section of Corridor businesses and non-profit organi-zations, reveals a portrait of businesses that:

• Are small (two-thirds have fewer than 10 employees)

• Own their own building (more than two-thirds of respondents)

• Expect to remain in the Corridor (only four respondents expect to depart)

The strong percentage of businesses owning their buildings opens opportunities for active participationof existing businesses in Vancouver / Williams Corridor revitalization. Of the 31 respondents, half saythey plan to renovate their buildings. Another four business respondents plan new construction in theCorridor, on their existing site or at a nearby location.

In addition to the preservation and growth of existing businesses, Vancouver / Williams Corridor busi-nesses responding to the survey are also strongly supportive of infill development, naming restaurants,office buildings, and retail stores as the most needed establishments.

A market study shows the Vancouver / Williams trade area shouldsupport new neighborhood business opportunities — groceries,restaurants, specialty retail, business services.

My vision for the Corridor: theVancouver / Williams Infill Strategy

should be a gateway of opportunityfor small and medium sized business,

while maintaining the Corridor’shistorical significance.

Ken Doswell,Corridor business owner

“”

27


Results of the Vancouver / Williams Corridor business survey are shown below.

VANCOUVER/WILLIAMS CORRIDOR INFILL STRATEGYBUSINESS SURVEY RESULTS

BUSINESSES SURVEYED60 Total businesses contacted31 Surveys completed

TYPES OF BUSINESS / USE 6 Commercial / office11 Light industrial 7 Retail 4 Health care 3 Social service / nonprofit

BUSINESS SIZE20 Fewer than 10 employees 8 10-20 employees 5 20-50 employees 1 50-100 employees 2 100 employees or more

PROPERTY OWNERSHIP23 Own their building

FUTURE PLANS16 Plan to renovate their buildings 4 Plan new construction on existing site or another Corridor site 4 Plan to leave the Corridor

CORRIDOR NEEDS TO MAKE BUSINESSES MORE SUCCESSFUL• Better safety / security

• More restaurants

• New office buildings

• More retail stores

• More parking

• More street lights

28


ZONING REVIEW

key issue that was raised by Vancouver / Williams Corridor Task Force members and commu-nity participants during planning meetings was the extent to which existing zoning in

certain areas of the Corridor promotes or constrains future development opportunities.During the Corridor planning process, business and property owners pointed out spe-

cific examples where the current zoning constrains the opportunity of existing businesses to expand. Asa result of these concerns raised by participants, the Task Force asked the consultant team to review andevaluate how current zoning along the Corridor supports the proposed development strategy.

Zoning for the Vancouver / Williams Corridor was updated in 1993 as part of the Albina Community Plan(ACP). Current zoning along the Corridor provides for a mix and balance of residential and other uses asenvisioned by the community. The allowed variety of uses includes: commercial, light industrial / employ-ment, institutional, and open space. The following table summarizes Vancouver / Williams Corridor zones.

3CORRIDOR DEVELOPMENT PLAN

A

KEY TO VANCOUVER/WILLIAMS CORRIDOR ZONING

R2.5 Attached residential – a high density single dwelling, attached residential zone. For detachedunits, allows 8.7 units per acre; for attached units, allows 17.4 units per acre. Minimum lotsize is 5,000 / 1,600 sf, respectively. 10 ft setbacks in front, 5 ft on side, 5 ft in back.Maximum building coverage 50 percent of site, with 200 sf of outdoor area per unit. Typicalhousing types: duplex, attached housing, accessory dwellings.

R1 Medium density residential – a multi-dwelling zone; allows 43 units per acre, may be as highas 65 units per acre with amenity bonuses. Condominiums, apartments, duplexes, rowhouses.

RH High density residential — a multi-dwelling zone; regulated by floor area ratio (FAR) and sitedevelopment standards: maximum densities range from 80 to 125 units per acre. Charac-terized by medium to high height (4 stories or more), and development with high percentageof building site coverage. Typical housing types: high rise apartments / condos – near areaswith supportive commercial services and transportation.

RX Central residential — allows the highest density of dwelling units of the residential zones.Density is regulated by FAR and site development standards. Generally allows 100 or moreunits per acre, and housing development are characterized by a very high percentage of sitecoverage. The major types of new development are medium and high rise apartments andcondominiums. This zone also allows mixed use with residential uses predominating. Com-mercial and certain other uses may utilize up to 40% of the ground floor.

IR Institutional residential – multi-use zone that provides for development within large institu-tional campuses, as well as high-density residential. Some commercial and light industrialuses allowed.

CN2 Neighborhood commercial – allows small scale commercial uses on small sites. Uses provideservices for nearby residential areas and other uses. Development is to be auto-accommodat-ing except where adjacent to transit street.

CS Storefront commercial – provides for preservation and enhancement of older commercialareas that have storefront character. Zone intends new development to be compatible withdesired character of neighborhood. Allows full range of retail services and businesses withlocal and regional market areas. Oriented toward sidewalk, especially at corners.

EX Central employment – allows mixed use and industrial development at central city locationsthat have established character of significant densities of industrial and employment uses.Allows industrial business and service uses which need central location. Residential allowedbut not intended to predominate or set development standards for other uses in area.

29


“”

I thought we had purchased commercialproperty, but it was changed to

residential. I would like to see my propertyre-zoned for commercial use so that we

can fulfill our dream of providing aneighborhood bakery to the community.

Alex Hall,Corridor property owner

Zoning varies significantly among the Corridor’s four segments, as shown on the figures on pages 9-12:

Segment 1 – from Broadway to RussellPrimarily central employment (EXd) – the Corridor’s most versatile zone. Also includes:medium density multi-dwelling (R1) east of Williams; urban commercial (CS) along Russell;and high-density residential (RH) just south of Russell.

Segment 2 – from Russell to CookPrimarily institutional (IRd) for the Emanuel campus. Other zones are: R1 east of Williams;open space (OS) for Dawson Park; High density residential (RX) between Morris and Cook;and a single block of general commercial (CG) east of Williams at Fargo / Cook.

Segment 3 – from Cook to SkidmorePrimarily (EXd), with attached residential (R2.5) west of Vancouver. Other zones include: R1(west of Vancouver, south of Beech); and IRd (for the Red Cross complex).

Segment 4 – from Skidmore to KillingsworthPrimarily R1, with neighborhood commercial (CN2) at the Alberta node, and urban com-mercial (CS) at the Killingsworth node.

Although the community remains supportive of theAlbina Community Plan and of ACP zoning along theVancouver / Williams Corridor, the expectation of someparticipants in this earlier community-wide planning pro-cess was that the ACP would remain a “living docu-ment” one that would be updated and reviewed periodi-cally. It was in this spirit that zoning along the Vancouver/Williams Corridor was reviewed.

The zoning review for the Vancouver / Williams CorridorInfill Strategy reveals only a few examples that demonstratea need to revise zones along the Vancouver / Williams Cor-

ridor. The current zoning promotes the balance of uses envisioned by the community.Most existing businesses are allowed within their existing zones, and residential neigh-borhoods are protected. The flexible EXd (employment) and IRd (institutional) zonescover large portions of the Corridor.

During the Corridor planning, business and property owners identified three sev-eral specific examples where the current zoning has hindered existing businessesfrom growing and developing. Two of the three sites have historically been incommercial use. Locations of three constrained sites identified by Corridor propertyowners are shown in the accompanying figure: near Williams / Sacramento; Will-iams / Cook; and Williams / Skidmore.

Zoningconstraintsidentified byCorridorpropertyowners

NORTH

Ivy

Cook

Fargo

Monroe

Ivy

Fremont

Beech

Failing

Shaver

Mason

Stanton

Graham

Knott

Russell

Vancouver

William

s

Skidmore

Prescott

Sacramento

30


Given this recommendation, the three sites mentioned above and the areas in close proximity to themmay be appropriate candidates for some zoning re-evaluation and selective rezoning. Rezoning for thetwo sites south of Fremont would be possible only through the City of Portland’s legislative process. TheCity of Portland’s “no net housing loss” policy would require that other sites be re-zoned for housing tooffset this “loss”. Longstanding zoning agreements with the Eliot neighborhood would also need to berenegotiated, to facilitate any changes to existing zoning. Currently, the Eliot Land Use Committee doesnot support any rezoning of residentially zoned land to nonresidential zones.

Further north, other candidates for selective re-zoning (consistent with community values) are at thecommercial “nodes” surrounding key intersections along the Corridor: especially at Fremont, Skidmore,Alberta and Killingsworth. Each of these nodes has developable sites already zoned for commercial usesor employment. However, key vacant or underutilized parcels at each of the nodes are currently zonedfor housing:

• Fremont: parcels east of Williams (Cook to Fremont)

• Skidmore: sites east and west of Williams, and west of Vancouver (north of Skidmore)

Some zoning modifications at these locations may help support revitalization of these commercial nodesas envisioned by the Vancouver / Williams Task Force and Corridor businesses and residents. Extendingthe existing commercial and employment zones at these intersections could make available some largerdevelopment sites, provide expansion opportunities for existing businesses, help accommodate off-street parking, and leave more room for landscaped buffers to separate commercial uses and neighbor-hood homes.

The City of Portland’s recent five-year evaluation of ACP actions did not result in any recommendationsfor zone changes along the Vancouver / Williams Corridor. However, the evaluation recommends thatzoning along the MLK Jr. Blvd. and Vancouver / Williams Corridor receive more intensive scrutiny: ActionLU 19 - Monitor the zoning pattern and development activities and correct problems that inhibit devel-opment activity with solutions that support all applicable policies.

. . . reinforce Eliot’s past efforts tostabilize its identity as diverse residential

community. I want the assurances andguarantees of the recent past to berespected (in terms of compromises

made in favor of other agendas).Conversion of residential land to non-

residential use is not acceptable.

Lee Perlman,Eliot Neighborhood resident

“

”31


VANCOUVER/WILLIAMS CORRIDOR INFILL STRATEGYDEVELOPMENT OPPORTUNITY SITES

Site Size Zoning Current Use Segment

1. Russell / Williams/Vancouver 69,670 sf IRd Vacant land 2

**2.Fremont / Williams / Vancouver 129,375 sf EXd Bakery /distribution 3

33,570 sf R1d Vacant land

* 3. Beech / Vancouver / Williams 51,980 sf EXd Being used as 3church

4. Shaver / Vancouver 12,000 sf EXd Vacant land 3

**5.Skidmore / Williams 35,000 sf EXd Vacant land 3

*6. Skidmore / Vancouver 27,000 sf R2.5a Vacant land 3

**7. Alberta / Williams 19,155 sf CN2 Vacant land 4

*8. Alberta / Vancouver (Bible College) 15,800 sf CN2 Vacant land 4

9. Killingsworth / Williams 8,405 sf CSd Vacant building 4

* Site owned by non-profit institution** Sites selected for further study are shown in bold

Adjacent Parcel Adjacent Parcel Adjacent Parcel

(Life Change Christian Center,former grocery store)

(Community Church of God)

(Emanuel Hospital Campus)

From this list of nine candidate sites, the Vancouver / Williams Task Force selected three sites for furtheranalysis, using the following criteria:

• Vacant and/or developable within three years

• Large enough (20,000 + sf) to have an impact on character of Corridor

• Variety of zoning: to accommodate commercial / mixed use

• Little or no site assembly required – preferably single ownership

• Transportation access and exposure: on Vancouver / Williams Corridor and major cross streets

• Market and visual appeal and impact – high visibility sites

• Reinforces neighborhood landmarks and other proposed development

• Offers diverse development opportunities, of different sizes and types

• Reinforces concentration of development at key nodes

• Owned by private investor rather than non-profit institution

• Minority ownership; local wealth creation potential

• Supports Guiding Principles

DEVELOPMENT OPPORTUNITY SITES

To better evaluate the long-term potential for infill development along the Vancouver / Williams Corri-dor, the consultant team identified nine “opportunity sites,” representing a range of possibilities forfuture development. The nine sites are shown in the accompanying table.

(Continental Bakery plus adjacentparcel on east side of Williams)

*

32


The three selected sites include:

A. The current bakery site located at Fremont / Williams /Vancouver, combined with an adjacent parcel at the south-east corner of Fremont / Williams.

A

B

C

Ivy

THE THREESELECTED SITES

Alberta

Wygant

Going

Prescott

Skidmore

Mason

Shaver

Beech

Fremont

Failing

Ivy

Cook

B. A vacant site at Skidmore / Williams (across Williams Av-enue from Oregon Association of Minority Entrepreneurs)business incubator.

C. A vacant site at Alberta / Williams (southwest corner).

NORTH

Opportunity site at Fremont / Williams / Vancouver –currently used as a bakery.

Development opportunity site at Alberta / Williams.

Development opportunity site at Skidmore / Williams.

33


The three sites range in size from 19,000 to 164,000 square feet. Zoning is for mixed use / employment(EXd) or neighborhood commercial (CN2), allowing a range of possible uses. Two of the three sites areminority-owned.

For each opportunity site, the consultant team prepared a “development concept” and “developmentprogram” which outlined the specific mix of uses, area to be developed for each use (square feet), andparking requirements (spaces).

The three initial concepts were reviewed and refined, through discussions with the Vancouver / Williams TaskForce and based upon input from a public workshop. In response to strong public support for local jobcreation, a fourth development concept (A2) was added. The new concept focused on redevelopment ofthe bakery site for light industrial use (at Fremont / Williams / Vancouver). Also, Development Concept C (atAlberta / Williams) was expanded in size to consider adjacent properties under the same ownership / zoning.

The four development concepts are illustrated on the following pages.

If we have enough viable businessesand nice homes for people to take

pride in the area, then crime essentiallygoes away. The mixed-use concept thatis working well in Northwest Portland

can work in our Corridor, too.

Paul Anctil,Corridor business owner

“”

Gentrification is not necessary toupgrade an area. You must include

existing residents in the process;don’t move them out.

Annette Stanton,College teacher and former

area resident

“”

34


DEVELOPMENT CONCEPT A -MIXED USE DEVELOPMENT AT FREMONT/WILLIAMS/VANCOUVER

DEVELOPMENT CONCEPT• Urban style, large scale 3-4

story mixed-use development.• Redevelop existing building

for 37,000 sq.ft. of office/commercial with 9 - 1,300sq.ft. loft housing unitsabove.

• Build 13,000 sq.ft. of newneighborhood commercialwith 12 - 1,300 sq.ft.townhouses over the top onloading dock corner.

• Utilize existing warehouse as74-space covered parkinggarage that serves neighbor-hood commercial and officeuses.

• Create 104 space parkinglot that is accessed offVancouver to serve housingand office uses.

• On south end of blockbuild 30,000 sq.ft. grocerythat incorporates outletbakery with 39 housingunits above (13 - 1,200 sq.ft. flats and 26 - 1,300sq.ft. townhouses).

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William

s

Vancouver

NorthwestTire Co.

Apollo Auto

FremontManorApts.

McCullough’sCar Wash

BuckO’KellyFurniture

FlemingAutoParts

AmericanRed CrossParking Lot

Best WindowCovering &

Manufacturing

Fremont

Cook

Realty SignPlacement, Inc.

Ivy


102.23’482.8

4 ’

260’

137.4’

140.76’

100’

239.63’

DEVELOPMENT PROGRAM37,000 sq.ft. of redeveloped office/commercial13,000 sq.ft. of new neighborhood commercial50,000 sq.ft.

9 - 1,300 sq.ft. loft units in old building12- 1,300 sq.ft. townhouses — new construction13- 1,200 sq.ft. flats over grocery — new construction26- 1,300 sq.ft. townhouses over grocery — new construction60 units of housing

74 parking spaces in existing warehouse 104 parking spaces at ground level 104 new platformed parking spaces 282 parking spaces( 60) for housing units — 1:1 ratio(104) for grocery — 3.5:1 ratio 118 for office/neighborhood commercial —

2.4:1 ratio

• Create new 104 space level of platformed parking over top of otherparking accessed off of Williams Avenue to serve grocery store.

35


DEVELOPMENT PROGRAM

29,264 sq.ft. of redeveloped light manufacturing space18,143 sq.ft. of office/operations space47,407 sq.ft. in old building

31,000 sq.ft. of new industrial flex space in new building78,407 sq.ft.

71 parking spaces in existing warehouse 59 new surface parking spaces at

ground level130 parking spaces 1.7:1 ratio

DEVELOPMENT CONCEPT• Urban style, large scale 1-3 story light manufacturing industrial flex space development.• Redevelop existing building for 29,264 sq.ft. of light manufacturing space with 18,143 sq.ft. of office/

operations space above.• Utilize existing warehouse as 71 space covered parking garage that serves manufacturing uses. On

south end of block build 31,000 sq.ft. of new industrial flex space that incorporates bakery and could beused by one or more users.

• Create new 17,748 sq.ft. surface parking lot with 8,874 sq.ft. of loading dock area on north side of newbuilding.

• Maintain two-lane drive through lane in between old and new buildings for auto and truck access.

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William

s

Vancouver

NorthwestTire Co.

Apollo Auto

FremontManorApts.

McCullough’sCar Wash

BuckO’KellyCustomFurniture

FlemingAutoParts

AmericanRed CrossParking Lot

Best WindowCovering &

Manufacturing

Fremont

Cook

Realty SignPlacement,

Inc.

Ivy


102.23’482.8

4 ‘

260’ 137.4’

140.76’

100’

239.63’

DEVELOPMENT CONCEPT A2 -LIGHT INDUSTRIAL DEVELOPMENT AT FREMONT/WILLIAMS/VANCOUVER

36


DEVELOPMENT CONCEPT B -MULTI-TENANT COMMERCIAL DEVELOPMENT AT SKIDMORE/WILLIAMS

DEVELOPMENT CONCEPT• Urban style, street-oriented, 2-story multi-tenant building. 15,000 sq.ft. of ground

floor commercial spaces that includes 3,000 sq.ft. restaurant and 12,000 sq.ft. ofstorefront commercial with another

• 9,000 sq.ft. of small business office space over top.• 31 angled parking spaces behind and at north end of development accessed off of

N.E. Mason

DEVELOPMENT PROGRAM

24,000 sq.ft. of new office/commercial building31 new surface parking spaces — 1.2:1 ratio

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Northeast CommunityDevelopment Corp.

William

s

Vancouver

AnctilHeating &Cooling/

Anctil SheetMetal

Abbot &SimpsonRoofing

First AMEChurch

ScientificResearch Inc.

Mason

Skidmore

OAMECascade

AnctilHeating &Cooling/

Anctil SheetMetal

N.E.WorkforceCenter

100’

350’

37


DEVELOPMENT CONCEPT• Urban style, street-oriented, 2-story mixed-use building with parking behind

building.• 16,500 sq.ft. of neighborhood commercial/office on ground level with 11-13,

800-900 sq.ft. apartment units above.• Corner atrium entrance on Alberta and Williams.• 65 parking spaces behind building

accessed off of either Williams or Alberta• Possible relocation of existing structures

DEVELOPMENT PROGRAM

16,500 sq.ft. of new neighborhood/ commercial/office11-13, 800-900 sq.ft. new apartment units26,500 sq.ft. building

65 new surface parking spaces(13) for housing units 52 parking spaces for neighborhood commercial/office — 3.2:1 ratio

DEVELOPMENT CONCEPT C - MIXED USE DEVELOPMENT AT ALBERTA/WILLIAMS

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Alberta

William

sAlbina HumanResources

Service Center(State of Oregon)

Abdullah Sharif/Commonway

Institute / ThreeValleys Project

State ofOregonParking

Vacant Lot -North PortlandBible College

100’

Vancouver

12121212121212121212121212

11111212

1212

135’

185’

222’

165.5’

38


ANALYSIS OF DEVELOPMENT CONCEPTS

The consultant team analyzed the four development concepts to determine their financial feasibility.This pro forma analysis calculates the expected gain (or loss) to someone developing the site.

It is an illustration of the financial components behind project development and pro-vides an evaluation of the potential financial gain — (or return on investment) — tosomeone developing the site. If a proposed project provides a rate of return that isconsidered sufficient given the potential risk (in this instance the analysis sets a targetrate of return at 15% or greater) then that project is considered feasible.

The information provided by pro formas is based on unit cost estimates and several assumptions aboutcosts, financing, and the market conditions. The following assumptions were applied to all of the devel-opment concepts:

• There is a market or need for all the proposed uses.

• Rents for office, retail, flex, and housing reflect the local market.

• All housing shown in development concepts will be market rate rental units.

• The projects are developed speculatively on the assumption that the rents col-lected will result in financial gain for the developer/owner.

The results suggest that none of the development concepts are feasible without equity infusion (i.e.,financial assistance). While all of the projects would produce a small positive return, none would reachthe 15% target rate of return on capital.

Two of the development concepts — while not feasible are estimated to produce a somewhat higherrate of return from the other concepts:

A2 – Light industrial / flex and office at Fremont / Williams / VancouverB – Mixed use (office and retail) at Skidmore / Williams

The better performance is due to the absence of housing in these concepts. Under current- marketconditions, residential construction costs are not offset by prevailing rents in the Vancouver / WilliamsCorridor, so including rental housing units tends to harm project feasibility.

The important implication of the analysis is that, in today’s market, infill development projects which arecompatible with the community’s vision for future development will require outside capital infusion(subsidies).

The following table displays results of the pro forma analysis.

WHAT IS A PRO FORMA?

39


DEVELOPMENT CONCEPTS – PRO FORMA RESULTS

Site/Concept Location Project Costs Unassisted Equity Developer Required to Return on Make Project

Investment Feasible

A – Mixed Use $20.7 million 2% $9.1 million(residential, office, retail)

A2 – Light Industrial $8.0 million 5% $1.3 million(flex and office)

B – Multi-tenant Commercial $2.5 million 7% $260,000(retail, office)

C – Mixed Use $3.3 million 2% $1.2 million(residential, office, retail)

Fremont / Williams /Vancouver

Fremont / Williams /Vancouver

Skidmore / Williams

Alberta / Williams

Our neighborhood doesn’t needmore community centers.

We need training facilities thatteach residents a trade so they can

get living wage jobs.

Craig Snodgrass,Corridor business owner

“”

40


TOOLS AND POLICIES TO SUPPORT CORRIDOR DEVELOPMENT

Planning for the Corridor included an evaluation of tools and policies which might be introduced toattract and/or retain development. Categories of public actions or investments which were considered tostimulate Vancouver / Williams Corridor development include:

• Planning and development assistance• Infrastructure and capital improvements in public right-of-way• Zoning modifications• Incentives (programs, policies, financial)

COMMUNITY VIEWSThe topic of tools and policies to support Corridor development became the subject of discussion at TaskForce meetings and public workshops, and was covered in several surveys conducted by the Task Force:the Corridor business survey, and surveys of area residents and other participants.

In summary, community participants see a need for a multi-faceted assistance program to facilitateCorridor business retention and the infill development strategy. The need for comprehensive assistanceis also substantiated by: the results of the survey of Corridor businesses; pro forma analyses conductedfor Vancouver / Williams Corridor prototype projects; the record of infill development in the Rev. MartinLuther King Jr. Boulevard over the past decade; and experience in other parts of the City.

Specific feedback from the community included these key points:

• Financial incentives (grants, low-interest loans, tax breaks) are the mostimportant tool to support new development and renovation.

• Incentives should help existing corridor businesses, not just attract the newones.

• Assistance with building code compliance and/or relief from certain coderequirements is also required.

• Zoning changes should be considered for special circumstances: to providemore flexibility, allow expansion of existing businesses, promote job andhousing growth.

• Streetscape design – street furniture, lighting, traffic improvements, park-ing – is also important to promote Corridor revitalization.

• The urban renewal district for Interstate MAX may aid Vancouver / Will-iams Corridor.

• Public actions should leverage private investment.

With this input, the consultant team analyzed several “case studies” — comparable development projectsat other locations — to determine which tools/policies might yield the greatest benefits for the Vancouver/ Williams Corridor.

We need to be preparedto be flexible.

Neil Swart,Eliot neighborhood resident

“ ”41


CASE STUDIES

An example of a large-scale, mixed use project in close-in Southeast Portland is instructive to demonstratethe type and degree of assistance needed to make mixed use infill development work at a similar location.The Belmont Dairy, located at S.E. 33rd and Belmont (and analogous to the bakery site at Fremont / Williams/ Vancouver), was abandoned in 1990 and redeveloped through a public / private partnership.

The project contains 133,000 square feet, a combination of two-story (existing buildings) and five-story(new construction). Housing includes 66 subsidized units and 19 market rate loft apartments. Ground floorcommercial space totals 26,000 square feet, with an anchor tenant (Zupan’s Market), small shops andrestaurants. Belmont Dairy has 62 enclosed parking spaces, plus 68 adjacent enclosed and surface spaces.

The $14 million project cost was underwritten through a myriad of public financing mechanisms, limit-ing the risk to private investors. The project was virtually 100% leased when it opened (1997). To date,it has performed significantly better than financial projections.

The following table summarizes public / private financing for the Belmont Dairy project.

BELMONT DAIRY – CASE STUDYPROJECT COST: $14 million

FINANCING: Construction Period Financing:

Bank of America - $4.6 million

Permanent Financing:Network for Oregon Affordable Housing - $4.6 million

Construction/Permanent (Public) Financing:City of Portland Livable City Housing Council Loan - $600,000Portland Development Commission Loan throughCommunity Development Block Grant Loan Program - $750,000State of Oregon Transit-Oriented Development (CMAQ-TOD) Loan - $300,000

Low-Income Housing Tax Credits/Related Financing:FNMA Tax Credit Investment - $8.3 millionCity of Portland Multifamily Housing Tax Credit Bonds (Bridge Loan) - $7.2 million

Venture Capital:First Amherst Development Group (New York)

SCHEDULE: Initial Housing Completion: October 1996

Housing Completed: November 1996Zupan’s Market Completion: February 1997

Belmont Dairy project at SE 33rd and Belmont.42


Another project recently completed closer to the Vancouver / Williams Corridor is the redeveloped formerStandard Dairy on Rev. Martin Luther King. Jr. Blvd. The project contains 107,505 square feet (sf) ofdevelopment. It combines renovation of the former Standard Dairy building (75,425 sf) with constructionof two new apartment buildings, a 22-unit complex, along with a 4-plex (totaling 31,880 sf).

The reconstructed dairy building includes 17,920 sf of commercial space with Billy Reed’s Restaurant asthe anchor tenant; 34,906 sf of housing, with seven live-work lofts and 24 apartment units; 17,100 sf ofcommon space and public decks; and 5,500 sf of basement storage.

All of the Standard Dairy project housing units are market rate, with current rents of $650 to $975 per month.

The project was built and leased in two phases. The new 22-unit apartment complex was completed in1998, and has maintained a 95% occupancy rate in its first fifteen months of operation. The redevel-oped dairy building was 90% leased when it opened in December 1999. Construction on the 4-plexapartment building is currently being completed.

The $14.2 million project construction cost was financed through the investment of the private owner,with a construction loan and line of credit from commercial lending institutions at market rates. Theowner / developer purchased the property in the early 1990s and used his own construction company tobuild the project. Permanent financing is not yet in place.

STANDARD DAIRY – CASE STUDY

PROJECT COST: $14.2 million

Site acquisition $660,000New construction 1,959,000Dairy renovation 8,961,875Public space 904,000Underground parking (12 spaces) 180,000Indirect costs 1,500,000Total $14,174,875

FINANCING: Construction FinancingKey Bank $4.6 millionAlbina Community Bank $500,000 line of creditInvestor FinancingPrivate Equity $9.1 million

SCHEDULE: Site Acquired 1990Apartment Complex Completed 1998Dairy Building Completed 19994-Plex Completed 2000

Standard Dairy mixed use development on MLK Jr.Blvd. in Northeast Portland.

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AVAILABLE TOOLS

A variety of financial tools are in place which may contribute to Vancouver / Williams Corridor revitalization,upon implementation of the Interstate Urban Renewal District.

Storefront Program - Provides 50/50 matching grants designed to assist property and business owners inrehabilitating their visible storefronts, revitalize neighborhood commercial areas and enhance the livability ofsurrounding neighborhoods in targeted neighborhood areas.

Development Opportunity Strategy (DOS) - Reimbursement grant to assist property and business ownersto evaluate project feasibility. Services may include architectural plans, engineering reports, and market andenvironmental studies in designated target areas.

Bureau of Housing and Community Development (BHCD) Loan Program - Loans for Business startups/ expansion / neighborhood revitalization / working capital / equipment in City of Portland’s Lents Town CenterUrban Renewal Area and N/NE Enterprise Zone.

Target Investment Program (TIP) - Loans for expansion of existing businesses in urban renewal and othertarget areas.

Economic Development Initiative (EDI-Section 108) - Loan program primarily for mixed use projects, butavailable for other purposes in Portland’s Enterprise Community.

Brownfields Economic Development Initiative - Grant program designed to complement EDI for cleanupand development of contaminated “brownfields” properties.

Brownfields Revolving Loan Fund - Loans at competitive interest rates to help investors finance cleanup ofcontaminated properties.

Brownfields Tax Incentive - Program that allows a tax credit for 100% of cleanup costs in the same calendaryear.

Economic Development Administration (EDA) Real Estate - Loans for real estate investment in Portland;available city-wide.

Deferred Equity - Business startups / expansion and building community wealth in the Oregon ConventionCenter Urban Renewal Area.

Oregon Business Development Fund (OBDF) - Revolving loan fund which provides long term, fixed ratefinancing for land, buildings, equipment and machinery, and permanent working capital.

Capital Access Program (CAP) - Designed to increase the availability of loans to Oregon small businessesfrom banks. The program provides loan portfolio insurance, so lenders may make loans that carry higher thanconventional risks.

Oregon Entrepreneurial Development Loan Fund - Provides initial loans of up to $25,000 to entrepre-neurial businesses enrolled in a Small Business Development Center (SBDC) small business management pro-gram.

Oregon Industrial Development Revenue Bond Program - Program that offers low interest rate loans andtax exempt bonds for manufacturing projects, exempt facilities, and non-profit organizations that creates jobs.

Oregon Credit Enhancement Fund - Provides guarantees to banks to increase capital availability to smallOregon firms, thereby assisting them to create jobs.

Tax Abatement - The Limited Property Tax Abatement for New Multiple Unit Rental Housing Program encour-ages new multi-family rental housing construction by offering a ten-year property tax exemption for a qualify-ing project. Eligible projects must have ten or more permanent rental units, be located within urban renewalareas, and be approved by the City Council.

Federal HOME Program - This new federal (HUD) housing program is based on needs identified in theComprehensive Housing Affordability (CHAS). HOME funds can be used for property acquisition, new con-struction, rehabilitation, site improvements, demolition and other activities that support affordable housing.

44


An example shows how some of these tools might be applicable for renovation of an existingVancouver / Williams Corridor business.

The subject company — Electrical Dimensions — established business operations 18 years ago in theCorridor. As an electrical contractor, the business provides commercial and industrial electrical servicesthroughout Portland.

This local firm values diversity in the workforce, and seeks to provide family-wage jobs to area residentsinterested in an electrical contracting career. Employees interested in a career in the electrical industrycan begin at entry level positions with full benefits, then progress into the formal training for the trades.

Three years ago, the firm purchased a building that would allow them to expand their operations andhire additional employees. However, when they submitted plans for a building permit, the City requiredcostly changes to the design which doubled the renovation cost.

Currently sharing a building with two other businesses, the electrical contractor’s relocation to the reno-vated facility would also allow the other businesses to expand. As an immediate result, the projectwould create 3-5 new positions. In the long-term, the expansion is estimated to create 10 new jobs.

This is a good neighborhood for thetype of business we’re in. It’s

convenient for our trucks, and inclose proximity to our suppliers.

Bob Bresee,Corridor business owner

“”

The Vancouver / Williams Corridor is home to manylong-time businesses.

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Summarized below are highlights of this local firm’s development plans and various programs whichmight contribute to project completion.

ELECTRICAL DIMENSIONS — CASE STUDY

Existing Conditions Proposed DevelopmentBuilding Size 1,600 square feet 4,200 square feetUses Vacant Office, Storage, ParkingEmployment 21 Family-Wage Jobs 31 Family-Wage Jobs

Challenges to Expansion:• Seismic upgrades double the cost of renovation• Landscaping design requirements costly, use valuable space• Bike lanes prevent use of off-street parking spaces

Potential Financial Assistance and Programs:

Storefront Program Designed to assist property and business owners in rehabilitating theirvisible storefronts, revitalize neighborhood commercial areas and enhancethe livability of surrounding neighborhoods in targeted neighborhood areas.

Development Opportunity DOS assists property and business owners to evaluate project feasibilityStrategy (DOS) by providing real estate expertise and financial assistance. Technical

services may include architectural plans, engineering reports, andmarket and environmental studies in designated target areas.

BHCD Loan Program Loans for business startups / expansion / neighborhood revitalization /working capital / equipment in City of Portland’s N/NE Enterprise Zone.

EDA Revolving Loan Fund Geared toward expansion of existing business in Portland city-wide

Expansion of existing businesses represents an important element of theCorridor strategy.

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ALBINA COMMUNITY PLAN

Adopted Albina Community Plan, Portland Bureau of Planning, October 1993Adopted Boise Neighborhood Plan, Portland Bureau of Planning, October 1993Adopted Eliot Neighborhood Plan, Portland Bureau of Planning, October 1993Adopted Humboldt Neighborhood Plan, Portland Bureau of Planning, October 1993Adopted Albina Community Plan Design Guidelines, Portland Bureau of Planning, October 1993Historic Districts in the Albina Community, Bureau of Planning, February 1992ACP Action Charts Review: Comments and Suggested Revisions, Portland Bureau of Planning,February 2000“Cornerstones of Community: Buildings of Portland’s African American History,” Bosco-MilliganFoundation, 1997.

MARKET STUDIES

Vancouver / Williams Corridor Infill Strategy Market Study, E.D. Hovee & Co., September 1999Mississippi: Historic District Target Area Economic Analysis & Market Strategy, E.D. Hovee & Co.,November 1999Martin Luther King Jr. Blvd. Market AnalysisMichael E. Porter, “The Competitive Advantage of the Inner City,” Harvard Business Review, May-June1995RMLS Multiple Listing Service (1996-1999)

MLK JR. BLVD.

Martin Luther King Jr. Blvd Commercial Development Strategy, Portland Development Commission,April 1998MLK Zoning Analysis Discussion Paper, Barney & Worth, Inc. and J.M. Woolley & Associates, January1998Mixed Use Development Feasibility Handbook for North / Northeast Portland, Portland DevelopmentCommission, May 1997MLK Boulevard Development Opportunity Strategy, Portland Development Commission, November1993

NORTH / NORTHEAST

Interstate Corridor: Urban Renewal Feasibility Study & Property Acquisition, Portland DevelopmentCommission, August 1999Mississippi Historic District Target Area Action Plan, February 1999Oregon Convention Center Urban Renewal Plan, Portland Development Commission, Amended June1996“Brownfields Efforts in N/NE Portland,” Portland Office of Transportation, February 2000

4APPENDICES

BIBLIOGRAPHY

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CHRONOLOGY: COMMUNITY INVOLVEMENT

1996 Formation of Vancouver / Williams Corridor Task Force

1996-1998 Task Force Research and Outreach

1998 Portland Bureau of Community Development Grant Funds Al-

located

1999May 20 Task Force Meeting

June 3 Task Force Corridor Tour

August 18 Task Force Meeting

August-October Survey of Corridor Businesses

September 9 Business / Property Owner Kickoff Meeting

September 16 Task Force Meeting

September 23 Community Kickoff Meeting

October 21 Task Force Meeting

November 4 Task Force Meeting

November 18 Community Workshop

December 4 Task Force Meeting

2000January 20 Task Force Meeting

January 27 Community Workshop

February 17 Task Force Meeting

April 6 Task Force Meeting

April Strategy Document Distributed to Interested Citizens

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DEFINITIONS

Minimum Lot Size: The smallest size parcel on which a particular type of development can occur.

Development Density: The intensity of development allowed on a parcel. The measure or extent towhich a parcel can be developed in conformance with how it is zoned.

Floor Area Ratio (FAR): A measure of development density that is calculated by taking the totalsquare feet of a building and dividing it by the total square feet of the land parcel that it is built on. Forexample, on a 10,000 sq. ft. parcel, with a 3 to 1 Floor Area Ratio, you would be allowed to build up toa 30,000 sq. ft. building, as long as the building met all other development standards for the applicablezone.

Setback: The distance from the curb or other established property line within which no building can bedeveloped.

Lot Line: The legal property boundary line.

Site Coverage: A percentage of how much of the total square feet of a land parcel is allowed to becovered by the building’s base. It is calculated by dividing the building’s base square feet by the totalsquare feet of the land parcel. In the example used above, if you have a 10,000 sq. ft. parcel and thebase of your building was 10,000 sq. ft. you would have 100% site coverage; if your building’s base was6,000 sq. ft. you would have a 60% site coverage.

Building Façade: The outside front wall of a building.

Mixed Use: A development project that combines commercial and/or industrial employment uses withhousing. A common example is multi-family housing built above ground floor commercial development/ storefront.

Demand Gaps: Unmet consumer demand in the Vancouver / Williams trade area that may indicateopportunities for new or expanded businesses.

Linkages: Connections with other business areas, industries, or activity centers that might provideopportunities for Vancouver / Williams Corridor businesses.

Brownfields: An underutilized or abandoned site that has real (documented) or perceived contamina-tion and potential for redevelopment or reuse.

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Let’s leave a legacy for futuregenerations and preserve a

knowledge of the ethnic history ofVancouver / Williams Corridor.

Pauline Bradford,Eliot neighborhood resident

“”

PDCPORTLAND

DEVELOPMENTCOMMISSION

1900 S.W. Fourth Avenue, Suite 7000Portland, Oregon 97201

503/823-3200

Documents

VANCOUVER/WILLIAMS CORRIDOR INFILL STRATEGY · geri washington, ejag elizabeth waters, consultant vancouver/williams corridor infill strategy april 2000 consultant team barney & worth,