Waterfront Revitalization for Small Cities Date

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WATERFRONT REVITALIZATION FOR SMALL CITIES DATE. OF

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PUBLICATIONcurrent most THIS For http://extension.oregonstate.edu/catalog OREGON STATE UNIVERSITY EXTENSION SERVICE WATERFRONT REVITALIZATION FOR SMALL CITIES DATE. OF by J.W. Good and R. F. Goodwin

James W. Good Extension coastal resources specialist Oregon State University,OUT and Robert F. Goodwin coastal resourcesIS specialist University of Washington Sea Grant Program With research assistance from Shannon M. Stambaugh Oregoninformation: State University

PUBLICATIONcurrent most THIS For http://extension.oregonstate.edu/catalog The authors owe special thanks to contract that made this book possible, Acknowledgments the city planners, citizen volunteers, who provided advice and encourage- business leaders, port staff and others ment throughout the research and living in the communities used as case writing of this book. studies. Their willingness to share Finally, we wish to remember the their knowledge, expertise, and late Myer R. Wolfe, dean emeritus and experience made this book possible. professor or urban design and plan- We specifically want to recognize Paul ning. University of Washington, Carr of Port Angeles; Paul Benoit, Seattle, who died as this book was Doug Thompson, Steve Forrester, and nearing completion. Andrea Kermet of Astoria; Jessica Fletcher, Carol Carver, and Steve Photography McClain of Skamokawa; Nolan City of Arcata: p. 45; T.H. Gentle, OSU Young, Valerie Smart, and Blair Sned- Office of Agricultural Communications: don of Reedsport; Larry Lehman and pages 13,24,25, 26,29,30 (2), 31,35,46, Dick Pearson of Seaside; Mary Lou 54,56, 62,DATE. 64, 67, 68, 69 (2), 71, 76, 81 Block, James Barnes, and Frances (2), 82,85, 87; Rod Gill, Reedsport, Murphy of Edmonds; David Hull of Oregon: p. 12; fames W. Good, OSU Arcata; Cindy Trobitz-Thomas and Extension Sea Grant Program: pages 2, Kevin Hamblin of Eureka; and Rich- OF10,11,14,15,18,19,42,43,55,56, 61, ard Malin, Steve Morrison, Pete 63, 64, 65 (2), 66, 68, 70 (2), 73, 74 (2), Swensson, Jackie Geppert, and Al 75, 99,105,115; Robert Goodwin, Kimbel of Olympia. Washington Sea Grant Program: pages Urban designers, planners, finan- 16,17,36,40,42,47,52, 62, 67, 80; cial consultants, and agency specialists Andrea Kennet, Daily Astorian: p. 8; reviewed earlier drafts of OUTthe manu- Kent Kerr, Daily Astorian, p. 9; fames script and gave us valuable advice. We Larison, Oregon Sea Grant Program: are especially indebted to Fred Click, pages 2,3,4, 60, 92; Monterey Bay Click Associates, Portland;IS John Aquarium, Monterey, California: p. 79; Owen, MAKERS Architecture and Oregon Historical Society, Portland, Urban Design, Seattle; Cynthia Weed Oregon: p. 1; fohn Owen, MAKERS of Preston, Thorgrimson, Ellis and Architecture and Urban Design, Seattle, Holman, Attorneys-at-Law, Seattle; Washington: pages 84,97; City of Port Ray Hansen, James Braman, and Tom Angeles: pages 7, 71; Port of Port Angeles: McCollough, CH2M-Hill; Peg Johnson, Ogdeninformation: Beeman and Associ- ates; Jim Schwab, American Planning Illustrations Association, Chicago; Peter Grenell, James Pettinari, University of Oregon California State Coastal Conservancy; College of Architecture and Allied Arts: Tom Dowd, Washington Sea Grant; cover, pages 38,49,50. Steve Harvey, Cowlitz-Wahkiakum David Myrum, Corvallis, Oregon: Governmental Conference; Rainmar pages 44 (2), 45; Bartl, Clatsop-Tillamook Intergovern- Signe Landon, Corvallis, Oregon: currentmental Council; and Pat Corcoran and pages 7, 9,11,13,15,17,19,33,34,48, PUBLICATIONFred Smith, Oregon State University 57,91. Extension Service. We want to pay special tribute to Editing and Design two people whose contributions to Project Editor: most this book were invaluable. Sharmon Stambaugh, our research assistant, Evelyn A. Liss, THIS searched the literature, collected OSU Department of materials, conducted interviews, Agricultural Communications For wrote drafts of case studies, and Text Editors: organized the appendixes. In addition, Myrna Branam, Word Design, she was the principal author of the Corvallis, Oregon; http://extension.oregonstate.edu/catalogOregon Supplement (EM 8415) to this Sandra Ridlington, guidebook. Don Oswalt, contract Oregon Sea Grant Program officer for the Oregon Department of Land Conservation and Development, Designer: Tom Weeks, OSU Department of Agricultural Communications CONTENTS i Introduction 2 What is a Small Waterfront City? 2 Why a Small City Waterfront Planning Guide? 3 How this Guidebook is Organized 5 Part I—Why Revitalize? 6 Port Angeles, Washington 8 Astoria, Oregon 10 Skamokawa, Washington 12 Reedsport, Oregon 14 Seaside, Oregon 16 Edmonds, Washington 18 Arcata, California 21 Part II—Revitalizing Your WaterfrontDATE. 23 Stage 1—Getting Started 23 Organizing the Planning Team 26 Outlining the Planning ProcessOF 27 Getting the Community Involved 28 Involving State and Federal Agencies 32 Stage 2—Surveying the Waterfront 32 Defining the Study Area 33 Developing a GoodOUT Base Map 33 Inventorying and Mapping Information 36 IdentifyingIS Important Waterfront Issues 38 Stage 3—Developing the Waterfront Plan 39 Defining Plan Elements 45 Formulating Waterfront Goals and Objectives 46 Developing Alternative Design Schemes 50 Making Cost Estimates 51 Design Evaluation and Synthesis 52 Adoptinginformation: the Waterfront Plan 53 Stage 4—Implementing the Waterfront Plan 54 Managing Waterfront Revitalization 54 Implementing Land-use Controls and Incentives 54 Acquiring Necessary Parcels of Waterfront Land 55 Phasing Waterfront Redevelopment 55 Identifying Project Sponsors, Funding Sources, and Techniques current56 Marketing the Waterfront Plan PUBLICATION57 Stage 5—Revisiting the Waterfront Plan... The Ongoing Process 59 Part III—Revitalization Issues, Tools, and Techniques 60 Waterfront Uses and Activities most 72 Land Use and Development Controls and Incentives THIS 75 Land Acquisition Techniques 78 Financing Waterfront Revitalization For 84 Choosing and Using Consultants Effectively 90 Obtaining Permits for Waterfront Development http://extension.oregonstate.edu/catalog95 Appendixes 97 Appendix A. Citizen Involvement Techniques 105 Appendix B. Sources of Financial Assistance 115 Appendix C. References and Resources INTRODUCTION

The small cities and towns of steamers no longer call, the fishing found a particular niche their larger America, like their larger fleet has moved, and the docks are in counterparts do not fill. Marine counterparts, have changed disrepair. Often only remnants of the recreation and waterfront tourism are dramatically over recent past remain—old pilings, marine of growing importance in other decades. Nowhere is this more railways, concrete foundations, and towns, to the delight of some apparent than along the harbor or rusting boilers and other equipment. residents and the dismay of others. riverfront where many of these towns Today's waterfront is often a source But in nearly all of these grew up. A generation or two ago, a of embarrassment to many small communities,DATE. a closer look at the "walk down to the docks" was a towns, so they have turned their waterfront turns up many unrealized descent into a netherworld—a land backs on it, and allowed it to be opportunities for revitalization— where the odors of fish processors reclaimed by willows, cottonwoods, improvement of public access, and lumber mills mixed with stack and sedge. OFcreation of new economic activity, gas of the occasional tramp steamer, However, this characterization of preservation and restoration of where riverboats off-loaded cargo. A past and present waterfronts hardly historic structures and sites, and the place fishermen, boat builders, mill does justice to the great diversity of general creation of new life and workers, seamen, and transients small cities and towns in America. In energy. It is to these small cities and worked or loitered outside boarding many communities, the waterfrontOUT is towns that this guidebook is houses or seedy bars. Few frequented still a lively, vital place. In many addressed. It is aimed at the "movers a working waterfront who did not cities, fishing fleets have prospered, and shakers" of the community—city have business there. absorbing the boats ISfrom the smaller council representatives, planning Today, these working water- neighboring harbors; and by the good commissioners, city planners, port fronts have virtually disappeared. fortune of location or aggressive commissioners, harbormasters, water- Most of the mills have closed, the marketing, some small ports have front shopowners, and citizen activists. information:

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Waterfront Revitalization for Small Cities 1 What is a Small Waterfront City?

While "small waterfront city" is not defined in any rigorous way in this guidebook, one measure is size—our case study communities DATE. have populations ranging from 400 to 28,000 (see Part I—Why Revitalize?). However, much of this guidebook also is applicable to cities of 50,000 or OF more, but we are clearly not speaking to Portland, Seattle, Long Beach, Atlantic City, Norfolk, Jacksonville, or similar cities. Also, small cities we considered "waterfront communities" were those OUT on bays, sheltered oceanfront harbors and inland sounds, and navigable or once-navigable rivers—locations IS where water-related commerce or season, or a slump in demand for waterfront property developer is recreation prospers today or has lumber could devastate the local more likely to be a neighbor than a thrived in the past. economy. stranger. Therefore, the community's Another difference is that city aesthetic and cultural values have a government is closer to the people of greater influence on waterfront Why a Small City a smaller community.information: Municipal development projects. Also, the past Waterfront Planning departments are smaller, less bureau- is often close at hand and well- cratized, and easier to engage in remembered by folk who lived it, or Guide? community action than in a large city. who knew those who did. Furthermore, waterfront redevelop- On the other hand, smaller size How do the waterfronts of ment is likely to be a grass-roots often means communities don't have smaller communities differ from activity led by volunteers from the all the planning, technical, and those of larger cities, and why is this local business community, and the financial capabilities guidebook needed? current Small city waterfronts present —^ a different kind andPUBLICATION scale of redevelopment opportunity than is found in metropolitan downtown waterfronts, in part because their economiesmost are both smaller and simpler thanTHIS those of a metropolis. Local markets for major hotel, retail,For and office uses on the waterfront rarely materialize in smaller communities. Also,http://extension.oregonstate.edu/catalog one industry may dominate the town and the waterfront—a fishing fleet, pulp mill, or seafood plant. Under such circumstances, a poor fishing

Waterfront Revitalization for Small Cities needed to mount a successful water- How this Guidebook is community, and effectively involve front revitalization effort. In this local residents and government sense, this guide will be a valuable Organized agencies in the process. resource to them. This book has three main parts. Stage Two—Surveying the Public port authorities play an Waterfront outlines information, data important role in many smaller Part I—Why Revitalize? needs, and suggests how to sort out waterfront communities. Ports are presents stories of the waterfront important waterfront issues. engines of economic development in DATE. revitalization in seven small cities Stage Three—Developing the their taxing districts, providing and towns in the Pacific Northwest. harbors and other services to Waterfront Plan guides the small These towns may differ from your community in formulating clear commercial fishing vessels and town, but you will probably relate to recreational small-craft fleets. OFgoals, and devising ways to achieve the waterfront situation in one or them through the design process. Because of this economic develop- more of them. ment power, ports can be forceful Stage Four—Implementing the players in the revitalization of the Waterfront Plan gives tips for waterfront. However, the role of managing the revitalization process, community waterfront planner is a OUT such as establishing land-use new one for many small-port controls, phasing development, officials, and elected port com- acquiring land and financing, and missioners and professional staff IS marketing the plan. are still feeling their way through Stage Five—Revisiting the PIan...the sometimes unfamiliar political Ongoing Process exhorts small cities territory as redevelopment-oriented to be entrepreneurs—keeping abreast constituencies make new demands of changing trends and, with such upon them. These port officials also changes in mind, regularly reviewing will find a helpful resource in this and updating plans. guide. information: Policymakers at federal and state Part III—Revitalization Tools levels also have recognized the and Techniques has six sections, importance of revitalization efforts to each of which contains information economic development. For example, useful at various stages of planning in the Federal Coastal Zone Manage- and implementation. ment Act, Congress requires that states provide "assistance in the Waterfront Uses and Activities redevelopment of deteriorated urbancurrent presents information about the waterfronts and ports."PUBLICATION Many states nature, character, and relationships have similar policies promoting of land and water uses and activities revitalization, and some, such as and how they interrelate. California, have backed up such Land Use Controls and Incentives policies with major technicalmost and Part II—Revitalizing Your gives details on techniques—zoning, financial assistance. Waterfront presents a five-stage overlay districts, design standards, ThisTHIS guide for the revitalization process for developing and and development incentives— of smaller city waterfronts explores implementing a waterfront plan. The communities can use to tie develop- ideas unique to smaller communities, introduction to each of these stages ment to community goals. suggests a waterfrontFor planning includes a brief summary that Land Acquisition describes several process communities can adapt to fit provides a good overview of the tools available for acquiring property their own needs and situation, and http://extension.oregonstate.edu/catalogwhole planning process. interests in waterfront land. brings together, in one place, the Techniques covered include both fee- variety of information needed to Stage One—Getting Started shows simple and less-than-fee-simple make it happen. how communities can get organized, build leadership and support in the acquisition.

Waterfront Revitalization for Small Cities 3 Financing Waterfront Revitalization Obtaining Waterfront Development Appendix B, Sources of Financial contains information on how to Permits is a primer on an often difficult Assistance is a detailed listing of finance planning and design studies hurdle for waterfront projects, the public and private funding sources through government programs; and federal permit process administered by and programs available to small cities how to finance actual redevelopment the Corps of Engineers. and towns. projects, using public monies, public- Appendix C, References and private joint ventures, and traditional Appendixes Resources is an annotated bibli- commercial techniques. ographyDATE. of publications and other Choosing and Using Consultants Appendix A, Citizen Involvement information that communities may suggests reasons for hiring a con- Techniques outlines methods for find useful. Information on where to sultant, summarizes the preparations involving citizens in waterfront OForder materials also is included. needed, tells how to locate qualified planning, including the pros and cons consultants, outlines several alterna- of each as they relate to particular tive selection procedures, and gives goals. tips for developing good working relationships. OUT IS

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4 Waterfront Revitalization for Small Cities Why revitalize the waterfront? Each small city or town has its own answer to this question, but there are some common threads in their stories. For example, in many communities, resource-based industries have declined, and new economic activity is needed for the community to survive and prosper. In other towns, water-borne transportation and related port activities have decreased or ceased altogether, leaving the waterfront under-used or abandoned. Other communities are finding the number of out-of- DATE. town visitors is growing, straining public facilities, and causing congestion and other problems. While not always apparent, these OF problems are often rooted in larger national and international trends— worldwide economic restructuring; the general decline of U.S. manufacturing; the growth of service-relatedOUT and high-technology industries; innovations and centralization in transportation; changingIS demo- Why Revitalize? graphic characteristics; and changing amounts of leisure time and activities. These trends and changes create new demands, which, for small waterfront communities, mean new opportunities.information: The following stories of the waterfronts of several small cities and towns along the bays, sounds, and rivers of the Pacific Northwest illustrate how communities across America can successfully meet such opportunities and answer the PUBLICATIONcurrentquestion, "Why revitalize?" most THIS For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities In Port Angeles, Washington, In fact, 10 years ago, when city Port Angeles, the general deterioration of the planning director Paul Carr handed waterfront was one impetus for Port Angeles' zoning map to an revitalization. inquiring citizen, the recipient would Washington As in numerous other small appear confused, hesitate, then turn coastal ports in the Pacific North- the map upside down, putting the (pop. 17,300) west, Port Angeles' downtown waterfront at the bottom of the page waterfront had languished into and the mountains at the top. The fact disuse by the early 1970's. Cut off that the mountains were to the south from the downtown by dilapidated of town and the map legend and structures and unattractive land street names were now upside down uses, the water's edge had become didn't seem to matter! To Carr, this an uninviting series of haphazard behavior symbolized how the local fills, dangerous and inaccessible to population perceived the downtown the public. waterfront—they literally "turned their backsDATE. on it" and no wonder! OF

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The waterfront in downtown Port Angeles had few attractions for people prior to revitalization efforts.

6 Waterfront Revitalization for Small Cities Things have changed in Port harbor, is a centerpiece of the revital- the other of traditional heavy indus- Angeles. Today a visitor to the ized waterfront. On board the cutter, try—lies a waterfront zone each downtown city pier and Waterfront tourists on their way to nearby would now like to claim for its own Park is greeted by local volunteers Olympic National Park or Victoria, future expansion. bearing visitor information packages, B. C. via the Port Angeles-based Like the fresh paint and street handbills advertising restaurants and "Coho" ferry, join local folks for an banners downtown, this tension retail stores, and cheery offers of open house. between the port and the city is a sign help. Colorful street banners, new A few blocks to the west, at the of success. The port and its industrial sidewalks with trees and street Port of Port Angeles docks, ships tenants are experiencing the success furniture, fresh paint on recycled flying the flags of Japan, Korea, and of industrial restructuring in local storefronts, and reopened views of China take on loads of locally har- wood-products plants and growing the harbor, where merchant ships lie vested logs for export to Pacific Rim maritime trade; while the downtown at anchor, have replaced the grime trading nations. And beyond the merchants are capitalizing on busi- and dilapidation of a waterfront once docks, at Daishowa's modernized ness generated by a waterfront ignored, inaccessible, and in decline. mill, pulp and newsprint await opened to public access, visiting At its new berth at the city pier, a shipment. pleasureDATE. boat moorage, and views of U.S. Coast Guard cutter, permanently Between these two worlds—one of authentic maritime activity in the relocated from another area in the downtown commerce and tourism. harbor. The waterfront is alive again—it OFhas been revitalized!

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The Port Angeles city pier, a result of waterfront revitalization, provides an inviting place for people to picnic, sightsee, or relax.

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Waterfront Revitalization for Small Cities 7 In Astoria, Oregon, renewal was That was the year Thompson Astoria, sparked by the exodus of fish began living out one of his fantasies processors and the opportunity by purchasing the old Bumble Bee Oregon to attract residents and visitors Seafoods office building at the foot of to the downtown waterfront, if access Sixth Street. He had plans to use the (pop. 10f400) could be improved. first floor as office space for his Standing atop the viewing tower at partners and himself, and develop the new Sixth Street River Park he the second floor as a bed and break- helped finance, local realtor Doug fast, and restaurant. Thompson explains his feelings about "It had the finest panoramic view Astoria and his dedication to its of Astoria and the Columbia River waterfront. along the entire waterfront," he says. "I love this place," he says. "As a "Still, it was a risky investment and, kid, I spent my summers here at my if I had had to provide a written grandparents. 1 liked riding the ferry assessment of risk factors, investors and visiting the beaches and Fort would haveDATE. been better off going to Stevens. There's lots of history here." Las Vegas." For Thompson and other revitali- "Doug had more gumption than zation advocates in Astoria, 1985 will OFcash," is how the local newspaper be remembered as the year things editor describes the project. Never- really began to happen along the theless, Sixth Street River Park and Columbia River waterfront. Thompson's proposed re-use of No. 10 Sixth Street sparked the town's imagination about what the OUT Astoria waterfront could be. "Though there had been sporadic interest before then, and even some IS plans prepared for small parks, things just seemed to come together. The time was ripe," says city planner Paul Benoit, a prime mover who was director of the local estuary task force at the time. Economic change had brought information:waterfront problems and opportunities into sharp focus. The fishing and fish processing industry, long in decline, took a sharp dip as several processors closed, and the rail line was abandoned, leaving Astoria at the end of the line. Meanwhile, downtown merchants, just two current blocks from the riverfront, were PUBLICATION advocating for downtown revitalization, and touting tourism potential and the importance of their proximity to the waterfront. Awareness was most Astorians are exploring alternative uses for further heightened through a the railroad tracks along the water front where regional Sea Grant conference on THIS railroad traffic is almost nonexistent. waterfront revitalization held in Astoria that May and a new state coastal policy encouraging the For development of revitalization plans http://extension.oregonstate.edu/cataloghad just been adopted.

8 Waterfront Revitalization for Small Cities The community formed an ad hoc number of visitors. We think we can waterfront committee to study issues do that, if we keep the changes small- and recommend solutions, and a scale and in character." detailed design study of the down- Much remains to be done. "We're town waterfront is now underway. about halfway there," says Benoit. The area is anchored on one end by "The community knows the direction the Sixth Street River Park and, at the it wants to go, we've got the political other, by the Columbia River Mari- support; but financing is the major time Museum and the city-owned issue. We'll deal with that by using a Coast Guard pier at the foot of 17th phased approach to development." Street. Between the two points are the While it remains to be seen little-used railroad right-of-way; whether the momentum gathered numerous public-owned street ends thus far can sustain the revitalization overlooking the busy shipping process through design and construc- channel, tug operations, and gill-net tion, the quick success of Sixth Street salmon fishing drifts; and a mixture River ParkDATE. and support from officials, of water-related and commercial uses civic groups, local news media, and that convey a sense of its rich history. the public is cause for optimism "One of our goals is to maintain among waterfront enthusiasts in the working character of the water- OFAstoria. front," says Benoit. "That's what makes it interesting. But we also want to open it up to the community, to have it be a safe place to bring the kids, and to share it with a growing "We have to depend on ourselves," says Doug OUT Thompson at Sixth Street River Park. IS

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Waterfront Revitalization for Small Cities Across the Columbia River Jessica Fletcher, founding member Skamokawa, and upstream a few miles of "Friends of Skamokawa" and is Skamokawa. This small, Port Manager Steve McCIain join unincorporated town in a Commissioner Carver, who was the Washington rural Washington county where local county extension agent before lumber, agriculture, and commercial running for port commissioner, in (pop. 400) fishing are the mainstays of the talking proudly of the uphill battle economy was moved to action by the they fought and won to save Redmen significance of a historical building Hall. But they wistfully reflect on the about to be destroyed. one they lost to save the net-rack Port Commissioner Carol Carver building a few hundred feet away on can see Astoria from the bell tower of the river bend. Redmen Hall, Skamokawa's old The Development Council's schoolhouse where restoration is conceptual plan for Skamokawa had nearing completion. The roof has identified the net-rack building for been reshingled, a new flagpole has adaptiveDATE. re-use as a waterfront coffee just been turned from a Douglas fir shop, interpretive center, and small log, and the smell of paint permeates boat rental service. The unique the building's three floors. "Friends structure, used for 60 years by local of Skamokawa," a nonprofit corpora- OFfishermen for drying nets, was torn tion formed to spearhead the restora- down by a Portland developer who tion of the Hall and the revitalization thought it was an eyesore. of the tiny community, occupies part However, the three are upbeat of the main floor and shares space about Skamokawa's future. McCIain with the Lower ColumbiaOUT Economic ticks off a list of homes in the town Development Council, a potent that have been spruced up with new cooperative venture between local paint and yard work; and Fletcher government and privateIS businesses. talks about plans to build a new footbridge across Skamokawa Creek, linking the port's riverfront Vista Park and campground to an improved Fairgrounds Park on the edge of town. Carver points to the economic success of the port's recreational information:facilities and the plans to build moorage and tent camping sites to encourage boaters to spend time— and money—in the community. As a Portland-bound container ship takes the wide bend in the river and temporarily fills most of the visible horizon, the three discuss the current downside of becoming a popular, PUBLICATION revitalized, small waterfront town. "More people from Portland are coming here to buy property," says McCIain. "We don't want to turn this most town into a Leavenworth (a popular THIS Skamokawa's historic Redmen Hall has been For restored. http://extension.oregonstate.edu/catalog

10 Waterfront Revitalization for Small Cities Washington State tourist destination revitalized using a Bavarian architectural theme). We wouldn't be able to afford to live here." "We really don't have the land use controls in place to preserve the character and scale of this historic place," adds Fletcher. Skamokawa relies on county government to implement both zoning and building design standards, and there's not much support among county officials for either type of land use control. What Fletcher, Carver, McClain, and other community revitalization activists have achieved in this tiny DATE. riverfront town is remarkable. Friends of Skamokawa received Washington State Department of Community Development's (DCD) OF 1989 Outstanding Service Award for voluntary action and, according to Fletcher, "In terms of government grants, technical assistance and training, we've taken advantage of OUT 80 percent of everything out there!" The Skamokawa waterfrontIS with the second floor ofRedmen Hall visible in the upper right.

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Waterfront Revitalization for Small Cities 11 Even though people playing the Accomplishments to date include: lottery in Reedsport, Oregon, • development of a concept plan Reedsport, don't always win big, the town for riverfront revitalization; itself did—to the tune of • acquisition of three parcels of $177,000 for waterfront revitalization! land in the initial redevelopment Oregon Economic decline and mill area; closures had haunted the community • development of a new boat (pop. 4,592) and led business leaders to the con- ramp, transient dock moorage dock, clusion economic diversification was and small riverfront park; essential, and redevelopment of the • acquisition of funds to complete largely-abandoned waterfront was a detailed architectural designs and good place to start. However, there market the project to a private was one major problem: where could developer. they get the necessary funding? Walking down Water Street, the Assistance came from a number of gravel road that parallels Reedsport's directions, including the state lottery: nearly abandonedDATE. waterfront, one a portion of Oregon lottery proceeds can only imagine the bustling river- are used to stimulate economic front town this community once was. development. By combining their Late 19th-century photographs tell $177,000 share of those proceeds with OFthe story best—fishing boats unload- $118,000 in other grants—received ing their catches of salmon at busy from the Oregon Department of Land canneries; lumber and cedar-shake Conservation and Development, the mills jockeying their log rafts along Ports Division, the State Marine the wharf and loading barges bound Board, and the DepartmentOUT of Fish for California; factories producing and Wildlife—Reedsport had a fine wood furniture; and boat financial base to work with. They builders turning out the latest design. added another $30,000IS in city funds Back then. Rainbow Slough led and set to achieving revitalization directly from the Umpqua River to results that are converting the skeptics. the heart of town and was "Main Street" with banks, hotels, saloons, and other businesses lined up along its edge. Fires and a series of floods, the most recent and destructive in information:1964, have left only a few vestiges of this bygone era and, by 1985, there wasn't much raw material left to work with. The waterfront included a sand and gravel business, a tavern, an auto body shop, a concrete block plant, a ship repair yard, and a vacated seafood processing plant. current Worse yet, the waterfront was PUBLICATION separated from the rest of the community by a 7-foot concrete wall built after the 1964 flood. most THIS For http://extension.oregonstate.edu/catalog

Aerial view shows Reedsport's riverfront redevelopment area along the Umpqua River.

12 Waterfront Revitalization for Small Cities "That wall is a symbol of how private development. The key to this since they decided to embark on a we've turned our back on the water- whole project will be attracting riverfront revitalization effort is a front," says City Manager Nolan private investors who want to build story in itself. It is a story of a remark- Young. "What we want to do is make on the public infrastructure we're able degree of cooperation among the that barrier disappear by building up developing. Obviously, we're not local port district; City Council; and over it, creating an elevated there yet, but we've taken the first Chamber of Commerce; and the waterfront area and boardwalk up on small steps, and the people in the Hero Foundation, a private group pilings along the river—like the town community have become believers." that brought a retired Antarctic was in the early days. Our plans call While it's true that not much has research vessel to the community as for an interpretive center for the yet changed on Reedsport's river- an educational and tourist attraction. Lower Umpqua area and space for front, the progress they've made It also is a story of successful grant writing and effective use of consultants. City Planner Valerie Smart initially stirred up interest in the project when she, enthusedDATE. by an Extension Service sponsored waterfront conference she attended, reported on the meeting to city officials, port commissioners, the OFChamber of Commerce, and the Hero Foundation. The result was a joint resolution among the four groups, supporting a comprehensive study and subsequent development OUT of the Umpqua River waterfront. An ag-gressive city staff took it from there, identified sources of public The Hero, a retired Antarctic research vessel, is one focal point of Reedsport's waterfront funds, wrote grant proposals, and revitalization plan. IS got funded. "One of the things the granting agencies seemed to like is that we've pooled various grants to do the planning and initial development. Leveraging one grant with another information:stretches the impact their limited dollars have," notes Young. "Consultants are playing a vital role in our riverfront planning," says Smart. "There's no way we would have been able to do the necessary economic analysis or conceptual work the team we hired did. We just don't current have the staff or variety of expertise. PUBLICATION The consultant's study has given us credibility with funding agencies—it's not just another pipe dream." The Umpqua Riverfront Revitali- zation Project still has a long way to most go. The economic decline in tradi- THIS tional timber and fishing industries that prompted the new emphasis on tourism still plagues the community. For Nevertheless, Reedsport's on its way to a revitalized waterfront. There is a new optimism, due, in part, to the http://extension.oregonstate.edu/catalogsmall successes along the waterfront and the community cooperation that made them happen. Reedsport Riverfront

Waterfront Revitalization for Small Cities 13 Seaside had a different story than Along the loop trail, visitors can most coastal communities. stop by the historical museum and Seaside, While other small communities specialty shops, watch anglers haul in are turning to tourism as tradi- steelhead or sea-run cutthroat trout, tional industries decline. Seaside's observe mallards nesting in the Oregon traditional industry ts tourism. remnant marsh preserved adjacent to (pop. 5,735) Oregon's first and best-known beach the park, or see an occasional harbor resort. Seaside successfully combines seal or river otter. And, in summer, a family-oriented. East Coast-style tired walkers can hitch a stagecoach beach experience with the natural ride to other parts of town. beauty of the West Coast. Also, the use of the park is not But, as City Manager Larry limited to the daylight hours. Park Lehman explains, "The focus here lighting fixtures, which echo the had always been on the beach and design of those on the historic bridge, ocean—the river had been ignored." bring life to the park's nighttime views. Now, in addition to finding their "WeDATE. had some extremely good way to the beach or taking a stroll luck and timing in developing the along the historic oceanfront prom, park," admits City Planner Dick visitors and townspeople can enjoy Pearson, a contributor to Seaside's new riverfront parks, trails, boating, OFriverside renaissance. While Seaside and fishing facilities—all locally did not "win" the lottery as Reeds- funded by tax-increment financing. port did, it got its break in the bond market. The city had created an Urban Renewal District in 1978, Ktii OUT offering a no-vote bond issue at a TT^lMlfniiiwllb time when the area was assessed at iSv-^dEZ-.."..."' $26 million. Over the years, new «K' IS downtown development and favor- q: able market conditions have pushed n '^m the assessed value of the district to more than $66 million. ■|ui|[£* Tax increment funds from this '« increased property value allowed the city to pay off the bonds, make ..■-.si; W^*'.information: ■•fi downtown improvements, and build ES^mFSSIM ■-f ;■:• the riverfront parks and trails. More projects—including expansion of the Quatat Marine Park took advantage of a loop trail, improved fishing facilities natural resource overlooked in the past: the at river bridges, and better parking— Necanicum River that runs through Seaside. are in the planning stage. Seaside's luck also held for planning The centerpiece of this riverfront and building Quatat Marine Park. currentrenaissance is Quatat Marine Park, "Although permitting was a long PUBLICATIONlocated on the Necanicum River in and frustrating process, we complied Seaside's downtown commercial with the Necanicum Estuary Plan district. The park is a "people place" and did the necessary wetland with wooden decking extending over mitigation work," Pearson said. "We the river, and a ramp to provide kept our design and building costs most access for recreational boaters. relatively low by hiring a local THIS Attractive walkways and picnic designer who had contacts with an tables, a temporary boat moorage, an engineering consultant, and looking observation area, and an events to the City Public Works Department For pavilion entice a wide variety of for help with construction." recreational users. Additionally, a Downriver about a mile and just loop boardwalk along both sides of across from Seaside High School, is http://extension.oregonstate.edu/catalogthe Necanicum River crosses the Estuary Park, a unique facility Broadway Bridge, a local historic conceived, designed, financed, and landmark, and connects the park built by the school's Ecology Club. with other parts of town. The park is built on a low bluff overlooking the pristine estuary of the Necanicum. Visitors can observe the

14 Waterfront Revitalization for Small Cities DATE. OF

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variety of wildlife that visit or make their home in the marsh—shorebirds, great blue heron, bald eagles, coho information: salmon, and many others. Another feature of the park is the access walk down the bluff that takes students and visitors to one of nature's most productive laboratories for first-hand observation. Students have recently completed interpretative exhibits on the ecology and current wildlife of the area. PUBLICATION The city plans to follow suit with historical and tourist-oriented interpretive exhibits at Qua tat Marine Park. Although no formal community planning-workshops weremost held for QuatatTHIS Marine Park, public reaction was still quite positive. According to Larry Lehman, a typical comment was, "It's aboutFor time we did something there!" The community was The revitalized riverfront park opened up new water-related recreational activities in Seaside. involved in the naminghttp://extension.oregonstate.edu/catalog of the park with more than 400 names entered in Seaside is proud of its tradition as every kid in Seaside has a summer the local contest. The winning entry a resort community. "People say that job if he or she wants it." "Quatat Marine Park," honors the tourism creates low-paying jobs, but Thanks to Seaside's aggressive historical Indian name for the area wages in our service sector are high revitalization campaign, these kids and was made official at the dedica- for the industry," said Larry. "And also have new places to enjoy their tion ceremony for the new park. time off.

Waterfront Revitalization for Small Cities 15 Public access to the water for beyond the ridgeline and visually Edmonds, scuba diving and for beach contain the small downtown and use, and a growing environ- nearby waterfront area. mental-education program "Public access, recreation, and Washington were driving forces for revitalization conservation are the present and (pop. 28,000) in Edmonds, Washington. Once a future goals for Edmonds' downtown small lumber-mill town halfway waterfront," says Planning Manager between Seattle and Everett, Mary Lou Block. Edmonds is now engulfed in the Edmonds' waterfront is home to bustling urban corridor that stretches several contrasting uses and users. from Tacoma to Marysville. Yet it The Washington State Ferries termi- retains the "feel" of an authentic nal serving northern Kitsap County, small waterfront town, perhaps Hood Canal, and the Olympic because the nearby forested bluffs Peninsula is located there; and screen the endless subdivisions summerDATE. ferry traffic can be delayed OF

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A public access easement required of private developers allows beachgoers to enjoy Olympic Beach.

16 Waterfront Revitalization for Small Cities Edmonds Waterfront Puget Sound Edmonds

Fishing Pier Washington

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for hours in a holding area two blocks inland. But, at low tide, visitors walk beneath those same docks and marvel at the profusion of marine life on its OUT pilings. Then, to the north of the ferry, Brackett's Landing beach and under- IS Edmonds Piriu * HeaMto „,,„„ water park provides a setting—with you to e&ioy this pai*. nttat nau J tilat the folkwing are not permitted underwater "trails" with interpretive by city ordmance »2$31 signs explaining the submarine life— unless posted otherwise. for scuba divers from the whole f§ ALCOHOLIC UVERACES region to come for their first "open- Q Ql DOGS t HORSES water" dive class. g Jg MOTOBIZED VEHICLES Until recently, the divers also B FmES.—information: —-—— shared the park with a pride of sea MARINE SANCTUARY lions who had been attracted to the site by the rectangular wooden floats installed for the divers' use. To the delight of the ferry passengers, and the chagrin of local residents who were kept awake nights by their barking, the floats quickly became current favorite haul-out spotsPUBLICATION for the marine mammals! Today, park rangers lead parties of To the south, between the ferry The City Parks Department solved school children on beach walks to dock and the Port of Edmond's 900- the problem by replacing the flat- examine tidepool life and marine slip marina, lies Olympic Beach and topped floats with drum-shaped ones encrustations on the pilings of a a new public fishing pier. New designed to foil the creatures.most "They derelict marine railway trestle used developments along the shore have work—theTHIS sea lions now hang half a century ago to haul rafted logs been required to dedicate a public around sleeping quietly in the up into one of the five sawmills built access easement across the front of shallows at the northern end of the along the shoreline. The children, as each lot and, at present, only one hole beach," said JimFor Barnes, city parks well as scuba divers and the general remains. City planning officials hope, and recreation manager. public, are taught to look and touch eventually, there will be a continuous but to not remove marine life any- accessway, dry at high tide, linking http://extension.oregonstate.edu/catalogwhere on the beach. the marina to Brackett's Landing.

Waterfront Revitalization for Small Cities 17 In many small communities, it is Surprisingly, wastewater manage- Arcata, new business activity, maritime ment was the biggest catalyst. Faced commerce, and parks with open with new strict wastewater discharge views that are drawing people laws, the city set out to prove California to the waterfront again. However, in marshes could be used as an inexpen- (pop. 14,800) Arcata, a small northern California sive means for "polishing" wastewa- town wedged between Humboldt ter (the final step of the treatment Bay and the majestic redwood process), and enhance bay resources country, it's a different situation. in the process. Here it's the waterfront "residents" In 1979, with financial assistance themselves that are drawing people from the California Coastal Conser- to the shore to see thousands of vancy, the city began a marsh restora- willets, marbled godwits, teal, and tion project that has become the other waterbirds in the mudflats and Arcata Marsh and Wildlife Sanctuary. pools of Arcata's nutrient-rich By 1981, 30 acres of freshwater marshlands. wetlandsDATE. and a 22-acre brackish lake The 154-acres of restored marsh- had been created around the aban- lands and wildlife sanctuary—a quiet doned, earth-capped landfill. And refuge with miles of woodchip paths today, the old landfill is a grassy just a few blocks from downtown— OFupland with trails and bird-watching already attracts more than 100,000 blinds, and the wetlands are part of a visitors a year. A new interpretive wastewater treatment program. center also is in the works. Funded in However, waterfront restoration part with a $100,000 grant from the did not stop there. Poor economic Ford Foundation for "InnovationsOUT in conditions in the late 1960's had shut Government," it will feature hands- down the major lumber mills on on discovery labs for local school Arcata's waterfront. Vandalism had children. IS so damaged the structures that a What changed this area from an "clean up" of the area in the mid-70's abandoned and polluted industrial leveled many of the buildings. In the strip to a nationally recognized process, views of the bay opened up community project? at the edge of town, but, according to information:

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More than 200 species of birds frequent Arcata Marsh.

18 Waterfront Revitalization for Small Cities David Hull, aquatic resource special- Works Department transformed the University researchers for a salmon- ist for the City of Arcata, it was still a area—they breached dikes to restore and trout-rearing project to restore part of town nobody wanted to be in. salt marsh habitat, returned a local fisheries. "It was really the environmental degraded slough to a more natural Using a lot of imagination—and impact report done for the marsh that condition, and created a freshwater technical and financial assistance gave us the first picture of what marsh and swamp area from an from Sea Grant, the California might lie ahead," Hull explains. abandoned log pond. Waterfront Department of Fish and Game, With a new vision for the aban- property and city wastewater also are and the California Coastal Conser- doned waterfront, the city's Public being used by Humboldt State vancy—the city designed a marsh with a mission, one that's helping to purify municipal wastewater as well as providing a unique wildlife habitat for the community's enjoyment. Arcata townspeople have identified strongly with the marsh project, using the DATE.trails, studying the birdlife, serving on project task forces, and joining The Friends of Arcata Marsh. Additionally, each year, the town OFturns out for Waterfront Day, a celebration of the ingenuity and involvement of Arcata's city staff, university researchers, and citizens. David Hull points out a rather OUT unusual way citizens rally to the marsh cause— They add a certain color with wry local slogans such as IS "Flush with Pride" and "Thank You For Your Contribution!" Arcata's marsh sanctuary is a short walk from downtown. Arcata's success shows that revitalizing the waterfront can have Samoa Blvd. unexpected benefits by bringing out the talents of local citizens and Arcata Marsh and making it a better environment for Wildlifeinformation: Sanctuary both people and wildlife.

The stories told here convey a Z23 Bird Blinds sense of the excitement waterfront revitalization can create in small current communities. PUBLICATION However, while these and other communities have had some successes, they are often hard-won victories and not without their down- sides. For every success story, there is most another of false starts or long delays; or THIS failed bond measures and, in some cases, outright business failures. Many such stories are sprinkled For throughout this guidebook. They are told, in part, to help other small cities avoid the same pitfalls and, in part, to http://extension.oregonstate.edu/catalogrecognize that waterfront revitalization—despite its real and exciting potential—is not a panacea for solving all a community's problems.

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20 Waterfront Revitalization for Small Cities Making conscious choices Stage Two—Surveying the Water- about the future of the front deals with research steps, small city waterfront, including: rather than just letting • suggesting what you should things happen, requires good organi- consider as you define your planning zation, clear direction, and a rational area, process for identifying opportunities, • pointing out why you need a evaluating problems, and finding good base map, realistic, achievable solutions. • outlining inventory and map- This part of the guide outlines ping requirements, such a process, based on the planning • giving suggestions for identify- stages and steps common to many ing important waterfront issues, and communities revitalizing their • suggesting ways to involve local waterfronts. citizens and community groups in The planning process presented this process. here is designed to serve solely as a DATE. model or guide. The actual process Stage Three—Developing the Water- followed by a community will be front Plan deals with the heart of the different as each is at a different planning process by: stage, and each waterfront has a OF• describing the elements in a unique past and present, and possible typical waterfront revitalization plan; future. Communities should take • suggesting processes for setting what seems useful in this guide, waterfront goals and objectives; adapt it as necessary, and leave the • outlining the steps for develop- rest. OUT ing alternative design schemes; Revitalizing The principal focus of the guide- • telling how to make cost book is on developing and imple- estimates, and evaluate and synthe- YourWaterfront menting the waterfrontIS plan. It does size the final design scheme. not include the details of architectural design, engineering, or construc- Stage Four—Implementing the tion—subjects that are covered in Waterfront Plan gives suggestions depth in traditional textbooks. for: This part of the guidebook has five • managing the revitalization sections, each dealing with a different process over the long haul, stage of the waterfrontinformation: revitalization • implementing land use controls, process. These stages are detailed in • phasing of development, the subsequent text, and summarized • identifying project sponsors and below and in Figure 1. funding sources, • acquiring needed land, and Stage One—Getting Started gives • marketing the plan. suggestions for: • organizing your planning team, Stage Five—Revisiting the Plan... current• outlining a planning process that the Ongoing Process encourages PUBLICATIONfits your unique situation, and communities to act like entrepre- • developing effective public and neurs: agency involvement programs. • keeping abreast of changing trends, • taking advantage of new oppor- most tunities, and THIS • re-examining the plan, its assumptions, and its specific project For proposals, on a regular basis. http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 21 Figure 1 Waterfront Planning Checklist Stage One—Getting Started Organizing the Planning Team Outlining the Planning Process Getting the Community Involved Involving State and Federal Agencies

Stage Two—Surveying the Waterfront Defining the Study Area Developing a Good Base Map DATE. Inventorying and Mapping Information Identifying Important OFWaterfront Issues Stage Three—Developing the Waterfront Plan Defining Plan Elements FormulatingOUT Waterfront Goals and Objectives DevelopingIS Alternative Design Schemes Making Cost Estimates Conducting Design Evaluation and Synthesis Adopting the Waterfront Plan Stage Four—Implementinginformation: the Waterfront Plan Managing the Waterfront Revitalization Process Implementing Land Use Controls and Incentives Phasing Waterfront Redevelopment current Identifying Project Sponsors and Funding Sources PUBLICATION Acquiring Necessary Parcels of Waterfront Land Marketing the Concept Plan most Stage Five—Revisiting the Plan—The Ongoing Process THIS For http://extension.oregonstate.edu/catalog

22 Waterfront Revitalization for Small Cities How do we get started? is the program, the following initial steps— first question a community amplified in subsequent sections— interested in waterfront will help a community get itself revitalization asks. Usually organized. it starts informally—perhaps at the • Organizing the Planning Team: local coffee shop, the Chamber of The planning team is a group of Commerce meeting, or in the city volunteers and professionals who planner's office—when people begin will support and guide the to share ideas, frustrations, and aspi- community through the planning rations for the waterfront. Issues process and assist in implementing begin to take shape—"there's no safe the ideas generated. Consultants are public access, it's a mess, or we need often a part of this team. to do something to diversify our • Outlining the Planning Process: economic base and the waterfront It is important to have a road map of might hold the key." the process used to create and The cities featured in our case implementDATE. plans for the water-front. studies suggest a few of the reasons You may not follow the map exactly, communities might look to the but having it at the outset will waterfront for renewal. increase the likelihood for success. In Port Angeles, one impetus for OF• Getting the Community Getting Started revitalization was the general deterio- Involved: Successful revitalization ration of the waterfront. Probably efforts—ones that are supported by more important, was an opportunity local residents—depend on an to relocate a Coast Guard cutter to the informed, involved public. After all, city waterfront by gettingOUT a new pier who is the principal constituent for built to support it. improved waterfronts? In Reedsport, economic decline • Involving State and Federal and local mill closuresIS led to the Agencies: Government agencies can conclusion that economic diversifica- help. Getting them involved early in tion was necessary, and that their many capacities—as technical re-development of the waterfront for and financial advisors, as land- tourist-oriented use was a good place owners, and as regulators—pays off. to start. Seaside had the money available— tax increment funds—toinformation: finance Organizing the improvements, and city officials were inspired by what other communities Planning Team were doing to revitalize their water- One of the first tasks in getting the fronts. waterfront revitalization process In Astoria, renewal was sparked started is to identify and develop its by the exodus of fish processors and leaders—the planning team. These the opportunity, if access could be are the lay or professional planners, improved, to attract residents and current designers, engineers, economists, and visitors to the downtown waterfront. PUBLICATION others who provide technical support In Arcata, the need for an inexpen- to the community as it develops and sive solution to sewage treatment led implements the plan. the community to their innovative It is highly desirable to have pro- marsh restoration projects. fessional assistance, a group that can: most In Edmonds, public access to the THIS water for scuba diving and beach • help design the planning use—as well as a growing environ- process; mental education program—were • arrange for and conduct public For driving forces. meetings and workshops; In other communities, it could be • compile, map, and explain an intrusive waterfront condominium inventory data; http://extension.oregonstate.edu/catalogdevelopment or, as happened in • facilitate the goal-setting process; Skamokawa, a recognition of the • suggest and graphically illustrate significance of an historical building design alternatives sensitive to public about to be destroyed. sentiment and to economic, social, Whatever the initial impetus for and environmental realities. starting a waterfront revitalization

Waterfront Revitalization for Small Cities 23 The specific makeup of the plan- a rich menu of choices for the revitalization plan are grandiose, ning team will vary from city-to-city, community. Or examples of how prudent entrepreneurs and property and from one part of the planning other communities in similar settings owners will not participate. Those process to another, depending on the have responded to waterfront who do participate could experience community's needs and the financial opportunities can be given as early business failures, perhaps and human resources available. illustrations of possible approaches. dooming long-run prospects for However, it is important to have a Thus, the design professional can private capital investment in the core group that will see the planning broaden the range of options to be waterfront. process through from start-to- considered, while showing ways to Conversely, if the opportunities implementation. avoid rigid adherence to a pat, presented are too timid and sub- Consultants are often key mem- borrowed theme. stantial new development does occur. bers of the planning team, but it is also important to have someone from the city intimately involved and "in charge" of the process from the local perspective. Possible candidates DATE. would be the city planner, manager, port official or other staff, or the chair of the city planning commission. This local planning-team leader should be OF a person who has the full confidence and support of local government, and who is qualified to deal with consultants and other outside professionals brought in to assist. OUT The following is a list of some professional experts who may be useful at various planning stages, and IS suggestions of possible ways to involve them in the process.

Waterfront Planning Professionals • Design Professionals information: Professionals in the overlapping • Economic Development the community could find itself fields of landscape architecture, Specialists without public amenities in scale urban design and urban planning— Economists and real-estate devel- with the project. Here again, the real- often found in consulting firms or in opment specialists can assist the estate market professional can help a university planning department— community at several stages and draw meaning from the inventory- have knowledge and skills useful at levels—from analyzing market stage design surveys of waterfront many stages of the planning process. demand for various economic sectors businesses and buildings. These professionals are experi- currentsuch as tourism, recreational boating, • Engineers enced in addressingPUBLICATION complex urban and seafood processing; to providing Engineers with marine, hydraulic, problems at many scales, from the details of how to best assemble, or geotechnical experience also can individual building to the entire finance, and market specific parcels contribute to the waterfront process regional landscape. of waterfront land. in many ways. They also are skilled at eliciting Such professionals can help At the inventory stage, engineers ideas and concepts frommost the local communities avoid the twin pitfalls might evaluate the structural sound- citizenryTHIS and at using clear, of wildly optimistic expectations ness of historic waterfront piers and understandable graphics to interpret about tourist-driven development, on buildings, or assemble hydraulic and the information and communicate it one hand, and undue pessimism hazard information. to the community.For about intractable local economic At the design alternatives stage, Additionally, as students of the conditions, on the other. they might assess the implications of urban landscape, experienced design Avoiding these pitfalls is essential tidal or river currents, wave heights, professionals can http://extension.oregonstate.edu/catalogplay an important if the community seeks private-sector or bottom sediment characteristics for educational role in the small participation in public revitalization the location or design of new water- waterfront community. projects. If the development opportu- front structures. Engineers also can For example, successful waterfront nities identified in the waterfront alert the planning team to problem design in other regions—or even sites or safety concerns, thereby foreign nations—can be presented as helping avoid poor decisions that will

24 Waterfront Revitalization for Small Cities need undoing later or result in cost Bay Area Development Association. • State and Federal Agencies overruns at the final engineering and The group first arranged for an Other major resources for the architectural design stage. economic study of waterfront and community are federal and state • Environmental Specialists downtown businesses through the agencies involved in various aspects Environmental specialists with University of Oregon Public Policy, of planning and design. Such agen- expertise in aquatic biology, fisheries Planning and Management Depart- cies may undertake studies to sup- and wildlife, surface water and ment. They then successfully sought port the planning, or provide data or groundwater pollution control, and planning assistance grants and hired other resources. The advantage of related sciences are often needed to a consultant who is working with using individuals from these agencies deal with complex environmental them to develop a consolidated is in their long-term staying power issues arising during waterfront waterfront revitalization plan for the and their ability to bring in the redevelopment. three separate communities on the experiences of other communities. Environmental assessment for bay. They also may help the community toxic wastes is a critical issue in • Universities and Colleges compete for planning and other waterfronts where wood products Nearby universities and colleges, grants. DATE. manufacturing, metals smelting, especially land grant and sea grant Environmental agencies also offer chemicals, or petroleum production institutions with Extension or Marine technical assistance, especially on might have occurred in the past. Advisory Services, may have a complex issues like toxic waste When waterfront redevelop-ment variety of technical assistance avail- OFcleanup. involves dredging, filling, or con- able. • Consulting Firms struction in or over water, impact Extension programs often have If other reliable sources of plan- assessment and develop-ment of community development specialists ning team expertise are not available, plans to mitigate the adverse effects and agents who might serve on the but money is, a community should will be needed. Having the expertise planning team or arrange for the consider hiring one or more consult- of an environmental specialist involvement of other universityOUT ants. Consulting firms of design and available to the planning team will faculty from departments such as planning professionals—supple- increase the chances the proposed economics, community development. mented by economists, engineers. development will meet environ- IS mental standards and safeguards. Sources of Assistance for the Planning Team Recognizing what types of professional assistance might be needed on information: the planning team is one thing— actually identifying individuals and organizing the team is another. Where does a community turn? • The Community Itself The importance of local representation on the planning team was noted earlier. Small cities, in particu-current lar, should considerPUBLICATION using their own staff professionals and volunteers to form the core of the planning team. business, architecture, planning, environmental scientists, and Cities without professional planning marine or environmental science, others—are uniquely qualified to do or engineering staff shouldmost consider geography, and engineering. Some- the work suggested in this guide- contracting with the county planning times professors will even solicit book. Such firms do this sort of work staff THISor area regional planning or communities for "real-world" proj- full time, and have the variety of development authorities. ects to help train their advanced specialized expertise and experience In some communities,For ad hoc undergraduate and graduate stu- discussed earlier in this section. planning teams coalesce around dents through internships. Eor suggestions on how to choose waterfront redevelopment concerns. Many local community colleges and work with consultants, refer to Coos Bay, Oregon, is a good example have small business development Part III—Revitalization Issues, Tools and of this. A group of http://extension.oregonstate.edu/catalog"volunteers" centers, and are another source of Techniques. (some of whom were also local assistance. elected officials and staff) formed the

Waterfront Revitalization for Small Cities 25 Outlining the Who will be involved in the approach to developing the water- process and when? front plan—it is drawn from the Planning Process Answering these and similar experience of several communities and from other planning approaches. What should be done first and questions is one of the first jobs for But a model is only a guide, to be what are the subsequent steps in the the planning team. fitted to the needs and situation of waterfront planning process? The waterfront planning model presented in this guidebook is one

| Fishermen in the Planning Process.. which Newport could take a lead, including a plant to process Pacific whiting, a new and growing fishery. For the City of Newport, Oregon, it was time to Maintaining a viable forest products export facility update the waterfront element of its comprehensive in the harbor was also a high priority for the fisher- plan. When city officials teamed up with the Port of men. Without those exports, there would be little Newport and consultant Tom McCollough, it seemed justification for the federally-fundedDATE. navigation natural to involve representatives of the commercial dredging that makes Yaquina Bay the good commer- fishing industry that pumped more than $67 million cial fishing port that it is. into the local economy in 1988. With respect to tourism—a major competitor for Fishermen are an independent lot-—many are busi- space on the bayfront—theOF fishermen wanted to see a nessmen who value their privacy when they reach compatible mix of waterfront commerce and busi- port—but that hasn't prevented them from voicing nesses to serve visitors. At one meeting, Terry their needs and concerns at public meetings. In fact, Thompson, an active member of the Fishermen recommendations from Newport's Fishermen Committee, noted that the city must compare the long- Advisory Committee were given much weight in the termOUT economic return from both industries to the waterfront planning process. community and make decisions accordingly. The Committee had identified significant short- Looking out for their own interests and the commu- comings in Yaquina Bay which limited their ability to ISnity's as well, the Newport Fishermen Advisory compete in the industry. The problems included Committee is making a difference. And the city and inadequate moorage, poor service-dock and repair port are listening. facilities, lack of parking adjacent to moorages, and a "This group has identified a list of projects and lack of cold storage and waste disposal facilities. reached a consensus on priorities," McCollough said. On a positive note, the Committee also pointed out "This gives their ideas a great deal of credibility." future expansion opportunities for the industry in information:

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The commercial fishing industry is a vital part of the Newport waterfront.

26 Waterfront Revitalization for Small Cities your community. Key questions are: decision-making. Difficult as these tourism community. They are an Where are you starting from? What questions may be, the value and involved, influential, and often well- parts of the model best fit your advantages of public involvement are organized group, and improved needs? What should be added or clear. public access and tourism are their dropped? It helps identify and develop com- major issues. The important thing is to develop munity leadership for the waterfront • Downtown Business Community an overall plan of action, add detail program. The downtown business commu- as the process unfolds, learn from the Good ideas emerge and a sense of nity is comprised of the bankers, process, and change course when the community is created. merchants, and other professional situation warrants. The planning Public involvement can help over- people who have a great interest in process should be clear and struc- come apathy and provide a support the economic and social vitahty of the tured, but not rigid, and should system for the development and community-at-large. Their offices are maintain flexibility, adjusting as implementation of the revitalization often located in close proximity to the needs change or unanticipated program. waterfront, and they offer a variety of situations arise. Strong public interest inspires services to waterfront businesses and professional staff and consultants to industry.DATE. Thus, they are sensitive to Getting the higher levels of achievement and the amenities it offers. creativity. • Local Government Community Involved Finally, a good public involvement Elected and appointed officials, Revitahzing the waterfront, program helps promote and maintain OF along with their staffs, perform many particularly in a small city, affects democratic values. the lives of all who live there. It's of the functions vital to successful vital that local residents have the Who is the Public? waterfront revitalization. They levy opportunity to participate in taxes, issue bonds and other financial Before examining techniques for decisions affecting them and the role instruments, plan and set priorities involving residents in the waterfront they play in the community. OUT for capital improvements, expend revitahzation program, it's worth- public monies (local, state, and Local residents are voters and while to look at several groups of taxpayers, and their support is federal), set zoning and building citizens who represent the social, necessary for the expenditure of IS regulations, enforce safety and health economic, and cultural fabric of the codes, and build and maintain streets, public funds and passage of bond community, and especially, of the measures and tax levies. They can parking areas, parks, and piers. waterfront area. influence and lobby local officials or Local governments are thus in a bring suit if necessary to block • Community-at-Large position to exert leadership and give proposals. The community-at-large comprises substance to plans for waterfront Citizens also are important users the bulk of the citizens who may or revitahzation. Individual government of the waterfront and consumers of may not be in anyinformation: special "group," officials are often leaders in other the goods and services offered there. but whose support as taxpayers and organizations and can influence Additionally, they are property voters is essential to the success of community opinion in a variety of owners and renters—the most any revitalization effort. ways. important of whom are the water- • Working Waterfront Community: • Academic Community front owners and tenants. If the Members of the working water- If a university, college, or com- rearrangement of waterfront space is front community have a great stake munity college is located in or nearby necessary to implement the revitali- in the waterfront's future. They the community, a variety of services zation plan, such property owners currentinclude commercial fishermen, fish and resources including technical may be called upon PUBLICATIONto renovate buyers, seafood processors, marine expertise, computer services, survey buildings or provide public access, or suppliers and outfitters, boat builders design assistance, data collection, and even move or demolish their struc- and repair-yard operators, private co-sponsorship of workshops on tures. and public ship dock managers, tug waterfront revitalization may be Local residents are alsomost the life- and support vessel operators, and available. blood of the community—they ferry terminal operators. These are If faculty and students can see provideTHIS the volunteer leadership and the water-dependent industrial and mutual educational or research energy to make things happen, and commercial users that provide basic benefits, they can provide support at they can be valuableFor sources and employment and create much of the various stages of the planning and collectors of information. vitality and energy found at the development process. Any city undertaking major waterfront. University-supported county ex- waterfront improvementshttp://extension.oregonstate.edu/catalog will • Waterfront Tourism Community tension services also are a resource struggle with questions of when and The people who run charter boat and have access to campus specialists how to involve citizens, and how to services, recreational marinas, bait in community development, public structure a process that provides for and fishing-supply shops, waterfront involvement, planning, and marine open discussion, free interchange of restaurants, gift shops, and lodging business and industry. ideas, and meaningful contribution to facilities make up the waterfront

Waterfront Revitalization for Small Cities 27 The academic community also sources, and how well they under- purpose to gather information, or to may be part of an existing web of stand the issues. communicate information already political leadership and com-munity They can be educators and serve as assembled?" "Is the idea to get organizations. catalysts for waterfront revital- opposing groups together to interact • Community Organizations ization. Their feature stories, editori- and exchange ideas? Or is it time to Community groups include als, and routine reporting can do make decisions, such as choosing business, professional, and labor much to promote community under- among redevelopment alternatives?" organizations; service clubs; social standing of waterfront redevelop- Whatever the case, it is important organizations; environmental organi- ment planning and projects and the for the planning team to have clear zations; youth groups; neighborhood zone changes, tax levies, and other objectives and use proven techniques. councils; and special interest groups. measures needed to carry out plans. If public involvement is sought only Their members are active in commu- Deciding when to involve the "because it is required," residents nity outreach projects and are a media and making yourself available quickly see it as the sham it is, and source of financial and volunteer to them to clearly explain the pro- few participate after the first go assistance. Thus membership usually gram is important; spotty, incomplete around.DATE. overlaps with many of the preceding coverage may do more harm than Appendix A—Citizen Involvement groups and includes much of the good. Techniques describes a number of leadership energy in the community. public participation techniques and Figure 2 is a list of groups found in OFsuggests the advantages and disad- most communities that may be Techniques for vantages of each. Though the tech- resources for a public involvement Involving Citizens niques are organized by specific program. objectives—information gathering, When deciding how to involve the disseminating information, promot- • The Media public in a particular aspect of the The press, radio, and television can ing interaction, and decision-mak- waterfront revitalizationOUT process, the ing—there is a good deal of overlap be friends or enemies, depending on planning team needs to ask, "What their perspective, their information in their use. It will be helpful to are we trying to accomplish?" "Is our review these ideas as you outline the IS planning process, and as you continue through it.

Figure 2 Examples of Local Organizations Involving State and The following partial list includes organizations typically found in Federal Agencies most communities. While each has been establishedinformation: for particular When should a community reasons (social, religious, professional), they all offer possibihties for involve state and federal agencies in assisting in the planning and implementation of a waterfront the waterfront revitalization process? improvement program. At the outset, before the plans are developed! Business and Professional: Chamber of Commerce, Jaycees, Business Because land use planning is often and Professional Women, bar, medical, arts thought of as the exclusive preroga- Educational: University and college clubs, PTAs, sororities and fraterni- tive of local government, communities, American Association of Universitycurrent Women, alumnae groups, ties sometimes fail to get agencies at teacher associations,PUBLICATION student groups other levels involved until later in the Environmental: Sierra Club, Friends of the Earth, Audubon, National process—for example, when they Wildlife Federation, Trout Unlimited, local groups want to get construction funding or permits for the new waterfront park. Fraternal: Elks, Masons, Odd Fellows, Moose, ethnic fraternities and That may be too late. Loss of time sororities most and money result, and the commu- THISLabor: AFL-CIO, ILWU, Teamsters, UAW, others nity often finds itself back at the Service: Lions, Kiwanis, Rotary, Optimists, Junior League, garden clubs drawing board, frustrated with "the Youth:For 4-H, Boy and Girl Scouts, YMCAs, YWCAs, Junior Achievement, agencies" and pointing fingers. Fortu- Campfire Girls nately, this is becoming less common, particularly in coastal states where Senior Citizens:http://extension.oregonstate.edu/catalog Golden Agers, retirement clubs local governments have been re- Political: League of Women Voters, Democratic and Republican and local quired to work with state and federal party groups, civic leagues agencies to develop coastal manage- Veteran and Military: American Legion, Amvets, VFW, AuxUiaries, Civil ment programs. Defense, National Guard, Navy, Coast Guard

28 Waterfront Revitalization for Small Cities Awareness of and sensitivity to State and federal agencies play a agencies especially have direct agency concerns have had positive number of important roles in the control over much of the waterfront. results for many communities' waterfront revitalization process and Finally, agencies have important waterfront revitalization projects, can provide valuable technical and environmental management respon- especially where agency personnel financial advice and assistance for sibilities, regulating dredging, get directly involved in the process. planning and development. Also, as filling, and construction in or over owners and managers of navigable water. river beds and tidelands, state land

I Newspapers Play an stressed the need for tourism to complement, not com- ' Important Role On the Waterfront... pete with, the local fisheries and seafood processing industries on the waterfront. During a one-day forum in 1987 to explore the The second focused on "what's on the waterfront," future of Vancouver, Washington's riverfront, Tom seen through the eyes of City Community Develop- Koenninger, editor of The Columbian, accepted an ment Director Paul Benoit andDATE. other knowledgeable award for excellence in planning from the American "water rats." Planning Association (APA). The award recognized How tourism and the working waterfront can co- his newspaper's eight-part series "Charting a Course exist and complement each other was the theme of the for Vancouver's Riverfront," published earlier that year. final article. Some ofOF the means identified by local The stories, written by Columbian reporter Brian waterfront industry proprietors included controlled Cantwell, were about the Washington shore of the public access, guided plant tours, and interpretive Columbia River north of Portland, Oregon, and signs and programs. covered much of the same ground a planning consultant's report would address—history, contem- OUT porary ownership patterns, issues and opportunities, development plans, obstacles to revitalization, and so forth—but were written in an easy journalistic style IS aimed at the largely blue-collar community. Beyond simply reporting on Vancouver's riverfront, the series included vignettes on other communities' waterfronts where lessons, good and bad, might prove instructive for Vancouver. Waterfront parks were given prominence, and, halfway through the series, a reader survey was conducted to solicit the public's information: priorities for new waterfront features such as restaurants, jogging trails, marinas, commercial development, and so forth. The survey results, together with letters from readers, were featured in the final article of the series. The Columbian followed up its series by hosting a public "design-in" to explore riverfront options using graphic exercises; and later, by sponsoringcurrent the Also, as was the case in the Vancouver articles, the regional public forumPUBLICATION on waterfront development experiences of other Northwest coastal cities were where the APA planning award was made. featured. Comparative analysis of six other cities Even though two successive failures of a parks revealed what might be accomplished in Astoria bond levy the following year stifled planned expan- through careful development, well-designed public sion of public parks and trails. The Columbian has access, and appropriate land use controls. revisited the waterfrontmost in subsequent articles, Newspaper articles such as these can help introduce keepingTHIS the issue alive and before the public. the waterfront community to itself, and to the upland Two years after The Columbian series appeared, residents and businesses whose support is necessary if Andrea Kennet and David Harlan, reporters for The revitalization is to occur. They also can inform the Daily Astorian,For produced a three-part series on community of key problems and opportunities on the Astoria's waterfront. The front-page articles coincided waterfront, and how other cities have responded to with the city's selection of a consultant for the design similar circumstances. of a civic pier—thehttp://extension.oregonstate.edu/catalog second phase of Astoria's water- However, unless the groundwork has been laid front plan. through careful public involvement and an open plan- The first article reviewed the history of the water- ning process, all the column inches in the world won't front, the plans for its revitalization, and introduced create community support for a waterfront plan the key local development actors and their projects. It also citizens don't "own."

Waterfront Revitalization for Small Cities 29 Agency staff are often willing to: agencies in some states have revolv- • serve on advisory committees, ing loan funds and planning assis- • provide maps, photographs or tance grants. other information, In states with approved coastal • review draft plans and design management programs, grants for proposals, land acquisition and public access • provide grant-writing advice or construction are available from state assistance, coastal management agencies under • speak to local groups about their section 306A of the Federal Coastal agency's programs, and Zone Management Act. • assist on field studies, environ- State Extension and Marine mental assessments, and the design Advisory Services have community and construction of piers, marinas, development agents and specialists and other facilities. who can help link communities with Whatever the task, there are the right agencies and programs, help usually state and federal agencies ment and every state has a wide train communityDATE. volunteers, and with responsibilities and expertise in array of programs available to help. conduct demonstration projects that area. It is wise for small cities to At the federal level, assistance is illustrating innovative programs for avail themselves of their assistance. provided by the Economic Develop- public involvement. ment Administration, the Small OF Business Administration, the Corps Agencies as Technical and of Engineers, and a variety of other Agencies as Land Owners Financial Aides agencies (See Appendix B—Sources of and Managers One of the premises of this guide- Financial Assistance). Submerged and tidally-influenced book is that small communities, At the state level, a variety of tech- lands in bays, sounds, and rivers, and working by themselves, rarely have nical assistance and financialOUT aid the beds and banks of navigable the range of technical and financial programs are available to local rivers and lakes are generally owned resources needed to prepare and governments and ports. Community and managed by the state in trust for implement a waterfront revitalization development agenciesIS assist with the public. These lands were granted plan. Fortunately, the federal govern- grants and loan programs and can by the Federal Government at the help communities get organized. Port time of statehood.

I Community Involvement in Reedsport... more ideas. The consultant conducted more commu- information:nity interviews and presented progress reports at Variety best describes the City of Reedsport's ap- formal city council meetings, including one entirely proach to getting residents excited about riverfront plans. devoted to the Riverfront Project. The first tack was to involve the local Economic Once design ideas were on paper, newspapers, TV, Development Forum, a group that was in place but and radio participated in a media blitz to keep had not been focused on waterfront issues. The city residents informed. Stations from 100 miles away in asked the forum to act as a citizen's advisory group for Eugene and Medford came to Reedsport, unsolicited, the project, and as many as 18 members served on the to see what all the excitement was about. forum at one time. Representationcurrent included a restaurant owner, a commercialPUBLICATION fisherman, a banker, Citizen involvement in Reedsport's waterfront revitalization retirees, a teacher, a high school student, paper effort brought together local residents, government officials, and industry employees, a dentist, and a citizen activist. consultants. The head of the forum, the local utility manager, spoke to civic groups and service organizations to get them involved as well. most THISPrior to bringing in a design consultant. City Planner Valerie Smart interviewed all waterfront tenants and landowners and asked them, "What do you visualizeFor happening on the riverfront and would you be willing to participate?" City Manager Nolan Young emphasized the public relations value of the interviews. "It showedhttp://extension.oregonstate.edu/catalog them we were listening," he said. Smart also led waterfront walking tours to help residents get a feel for the area's problems and assets. After the design consultant came on board, planners brainstormed at a town hall meeting to collect

30 Waterfront Revitalization for Small Cities DATE. OF

OUT IS

The "public trust" is a well- on redevelopment plans. County tax • putting protective seawalls in established, powerful, common-law assessors and state lands agencies are place, and doctrine that requires the state to the best places to start answering • constructing buildings on pilings manage these lands and the waters these questions. information:over the water. above them for purposes of naviga- In addition, depending on the size tion, commerce, fisheries and recrea- Agencies as Regulators and scope of the project, environ- tion. These particular public rights mental assessments or impact state- remain even if the land has been sold The waterway and wetland ments may be required. Numerous or leased to private interests, as is the regulatory roles of federal and state other environmental agencies will case in many urban areas. agencies can have a significant also review and pass judgment on Before any development can occur influence on a community's water- waterfront development proposals. on or over state submerged lands, thecurrent front redevelopment scheme, espe- They may require modifications, developer must obtainPUBLICATION the State's cially if there is work required in lengthening the time needed before approval. In most states such ap- wetlands or navigable waters. construction can begin. It can be a proval entails acquiring a license, Many activities associated with frustrating black hole for the uniniti- permit, or submerged-land lease waterfront redevelopment are ated. issued by the state lands agency. regulated—you must get a permit Small communities often turn to Many states also havemost adopted from the U.S. Army Corps of Engi- consultants to run the gauntlet of the strict guidelinesTHIS for regulating the neers, a counterpart state agency, or permit process. This may be valuable kinds of activities that may take place both (See Part III—Revitalization Tools and necessary, but it is a good idea on submerged lands, including a and Techniques, Obtaining Waterfront for a representative of the community water-dependencyFor test. Non-water- Development Permits). itself to initiate early contact with dependent uses may either be Regulated activities examples are: regulatory agencies. prohibited outright, or charged lease • dredging shallow areas for Even if the agencies do not want to fees much higher thanhttp://extension.oregonstate.edu/catalog those charged moorage or for improved navigabil- get actively involved in your plan- for water dependent uses. ning program, bringing them into the You need to find out who owns • filling of water and wetland community early to explain their and manages the lands along the areas to create parks or other devel- authorities, policies, and procedures waterfront, the status and terms of opment areas, will save time and avoid confusion leases, and their potential influence • bulkheading the waterfront. later.

Waterfront Revitalization for Small Cities 31 Waterfronts are complex for the planning process. These issues places. Before tinkering will be the basis of the community's with one, it is good to goals and objectives, and the specific know how it works. Each strategies and projects to revitalize has a unique history and present-day the waterfront. patterns of uses, activities, linkages, and interactions. It is vital to understand this past and present and to Defining the Study Area ask, "Where are we now in the ongoing process of change?" Determining the principal area of Much of the potential of small-city interest along the waterfront is waterfronts is hidden beneath the usually a simple matter. Often a surface, and a well-organized, single site or project is the focal point information-gathering process is of community attention. needed to uncover it. Of course, no Since the downtown waterfront is community starts from scratch—there where DATE.the people are, where the are the much-maligned, often forgot- demand for access is greatest, and ten plans on the shelf gathering dust. many times where opportunities for Using these valuable resources will innovative, mixed-use development save many hours of background work.OF can be found, it is often a major focus. New and updated surveys and Note that it is important to include Surveying the inventories will also be needed. the part of the downtown closest to • How are waterfront land and the waterfront in the study area, so Waterfront water areas used today, and who that linkages can be examined. uses them? OUT Defining the outer boundaries of • Who will be the waterfront users the waterfront planning area can be of the future? more difficult. Industrial or port • What is the IScharacter and scale development property away from the of the human-built environment? central waterfront may be important • What are the traffic circulation to include if there are interrelated patterns and problems? problems or conflicts. Also, transition • Where are barriers to physical zones between the central waterfront access? and outlying areas can be unclear and • What is the economic market are sometimes places of intense use situation andinformation: potential? conflict. These sites must be dealt Surveying the waterfront means with because they affect the future of finding answers to these and other the waterfront. questions. Specific tasks in this However, it is also important to process, further amplified in subse- make the study area small enough so quent sections, are: that the waterfront revitalization • Defining the Study Area: What program is focused. Where it is large are the limits of the waterfront to be and diverse, communities should currentdealt with in the planning process? subdivide the waterfront into func- PUBLICATION• Developing a Good Base Map: tional units, stressing the appropriate Maps are one of the principal analysis inventory needs in each. and communication tools for plan- It may be helpful to think about ning the waterfront—a good base the waterfront at two different scales. map will make the process easier. At a small scale, the waterfront most • Inventorying and Mapping shrinks to a mere line, perhaps with THIS Information: Focus on information obvious points along it—the port needed to deal with the issues most docks, a marina, a public park. This is important to your community, and the "big picture"—at this scale the For present the information in a form waterfront can be seen as a part of the people can understand. whole city. It is connected to the rest • Identifying Important Water- of the community through the street http://extension.oregonstate.edu/catalogfront Issues: The waterfront issues grid, major highways, and rail lines. facing the community—be they The relationships between key problems or opportunities—are grist waterfront features and other districts in the city can be observed. How far is the downtown core from the

32 Waterfront Revitalization for Small Cities waterfront? Where are the port docks Fortunately, resources to create The scope of a typical waterfront in relation to the local industries they the waterfront base map are usually survey is outlined below. Communi- serve? How far is it to the freeway readily available. Most communities ties should emphasize areas which are off-ramps that bring trucks down to have city-wide base maps that can appropriate to their situation and the waterfront? serve as a starting point. These maps needs, and organize the elements in At a large scale, the waterfront then can be supplemented by those a way that makes sense to them. appears as an area or district, with from the county tax assessor and the For example, Astoria, with its tightly visible detailed land uses, structures county and state highway depart- packed buildings along the water- and open spaces. It is here that the ments; fire insurance maps; Corps of front, concentrated its inventory relationships within the waterfront Engineers maps of navigation proj- efforts on aspects of the built become apparent. Where do port land ects; navigation charts issued by the environment. On the other hand, holdings abut other public lands? National Ocean Service; and aerial Reedsport, with mostly open space What pedestrian links are there photographs. and abandoned waterfront, between existing public water access You can create an accurate, large- emphasized physical constraints points? Where do residential areas scale waterfront base map from these and development potential. overlook port industrial activity? sources. To keep the cost down, DATE. While most of the detailed land consider hiring geography students Suggested Inventory Elements use and design decisions will use from the local or area university. information depicted at a large scale, • Soils, Geology and Hydrology: the effects of those decisions on the OFWhat are the soil types and geol- rest of the city will be apparent from ogy of the waterfront area? looking at the small-scale view of the What are the geotechnical charac- waterfront. teristics and hazards in the area? Stability, strength, slope, loadbearing capacity? OUT Location of faults, landslides or Developing slumps, depth to base rock? a Good Base Map IS Are there any abandoned or active landfills or hazardous wastes stored A good base map of the waterfront on the site? area is an invaluable tool for water- What are the characteristics of the front planning. Survey and inventory waters adjacent to the shore? data can be placed on the map, then Depths, channels, required main- used to examine spatial relationships tenance, current direction and veloc- and problems. You also can employ ity, flows (average and extremes), maps to analyze alternative solutions, information:water levels (average and extremes), illustrate design concepts, and salinity, quality? communicate with the public. What are surface and groundwater There are several requirements for flow and quality characteristics? a good waterfront base map. Are there flood or erosion hazards? • First, it should accurately depict Other constraints to development highways, streets, buildings, property or use? lines, topography, the shoreline, Information sources: Existing intertidal areas, water depths, ship- current environmental impact statements; ping channels, and otherPUBLICATION natural coastal zone management inventories features. and atlases; reports and maps of the • Second, it should be of large state geologist and U.S. Geological enough scale to comfortably illustrate Survey; National Ocean Survey the above information and to visually charts, tide tables, and reports; display information on mostoverlay maps Inventorying and THIS university departments of marine in public meetings and workshops. A Mapping Information science, water resources, civil and recommended scale for most water- ocean engineering, geography, fronts is 100 feet to 1 inch. As illustrated by the introductory For geology, soil science; environmental • Finally, the base map should case studies, the issues one commu- quality agencies; state and federal cover the entire study area. nity faces on its waterfront can be floodplain management offices. In most cases, thesehttp://extension.oregonstate.edu/catalog requirements very different from issues confront- mean a new base map will have to be ing another. Similarly, the type of prepared, as many of the desired survey and inventory information features will not appear on any single needed varies, as does the level of existing map. detail.

Waterfront Revitalization for Small Cities 33 • Natural Resources and Attributes: built environment, such as bridges, or Are there pedestrian hazards, or Are there wetlands, shrubs, and port or industrial facilities? places that "feel" unsafe? trees on the site? How are the downtown and Which streets are inviting and What are their values as natural waterfront connected? friendly to pedestrians? wildlife habitat, and what is their Is there a well-defined waterfront Which streets repel the visitor on relationship to the water? district(s)? If so, where is its core? foot, and why? Are there any threatened or What defines its/their edges? Do the waterfront buildings have a endangered species that use the area What features make the waterfront consistent architectural character and how might these species con- recognizable? (materials, scale, window and door strain development? Does it have a strong visual patterns, details, etc) or do they differ Information sources: Existing image? widely in style? environmental impact statements and Are there notable landmarks, Are buildings contiguous or comprehensive plan inventories; buildings, hills, towers, individual separated by side yards? National Wetland Inventory; state trees, which help generate that Are they set back from the street or land and fish and wildlife agencies; image? adjacent to the sidewalk? state offices of the Nature Conser- Are there parts of the district that InformationDATE. sources: Existing vancy; local and state environmental are visually weak, confusing, or comprehensive plan inventories; site organizations. ambiguous? surveys What is the pattern and texture of • Landscape Features and Urban the street grid? Is there a "seam" OF• Land and Water Use Design Quality: where the pattern changes? and Ownership: What are the topographic features Where are the main entrances to How are the waterfront and of the site? the waterfront? neighboring urban lands used? What natural features contribute to Where are the pathways through What is the mix of water-depend- the aesthetics of the area? it? OUT ent, water-related, water-enjoyment, Where are there views of the Are there barriers to vehicular and and other uses, and how is that water, surrounding landscape, and pedestrian movement? changing? interesting features of the human- IS How much vacant land is there? What are the patterns of public and private ownership along the waterfront, and how do these relate Urban Design Attributes to land and water use? Are there leases and easements Clear that affect these patterns? information:River Information sources: Existing comprehensive plan inventories; aerial photos; property tax assessor; property use and ownership survey.

• Building Structural Soundness: What is the age, type, quality, and condition of waterfront structures, current both on land and over water on PUBLICATION pilings? How have they been maintained and altered? Are there defects in primary structural components (pilings, most foundation, foundation walls, load THIS bearing systems, roof supports), secondary structural components ZL ZL-T (non-loadbearing walls, windows o!o For Formal Axial Link of Predominantly Open and doors, stairs, utilities, and so on), ^£ Riverfront and Downtown Grassed Surface or minor structural components a • Accessible Riverbank (siding, exterior porches, roof cover- 4 • Unimpededhttp://extension.oregonstate.edu/catalog Pedestrian Access River Views ing, drainage, and so on)? ^|£ Major Visual Terminus What is the occupancy of existing River Views from buildings, and is there potential for C^} Existing Trees Several Levels adaptive re-use? Upland River Views Information sources: Site surveys and inspections; property tax assessor; building owners; tenants.

34 Waterfront Revitalization for Small Cities • Building Appearance and Historical Survey: What is the appearance and character of structures: historic, defaced, modern, or foreign? What is the historic, architectural, or archeological significance of particular buildings or sites? Are any buildings or sites on historical registers, or are there any that have the potential to be? Information sources: Local comprehensive plan inventories; local historical societies; state historic preservation office; university or college anthropology, archeology, or DATE. history departments; site surveys.

• Traffic Circulation and Infrastructure: OF What are the patterns and flow of rail, vehicular, bicycle, and pedestrian traffic along and to the waterfront? How do these relate to existing OUT patterns of land use? Are there hazards and congestion? How many off-street parking IS spaces are there, and where are they located? Information sources: City public Preparing the waterfront inventory. works and parks and recreation departments; state transportation growth or decline, age structure, Information sources: State eco- departments; railroads. ethnic background, and family nomic development departments; structure? information:university and college economics • Waterfront Physical Access How might these demographic departments, and extension services; and Infrastructure: trends affect the future demand for local business survey. What is the condition and location various types of waterfront facilities, of direct access to the water for services, amenities, and products? • Governmental Jurisdictions swimming, diving, fishing, boat Information sources: Local and Constraints: launching and retrieval, and similar resident survey; visitor use survey; What are the roles of the city, the uses? state population research offices; port, and state and federal agencies What are the condition and currentuniversity and college departments. as they relate to management and location of other publicPUBLICATION facilities, such redevelopment of the waterfront? as restrooms, sidewalks, street • Economic Market Conditions Who controls what along the furniture, and lighting? and Demand: waterfront? Information sources: City public What is the nature, structure, and Jurisdictional issues include land works and parks and recreation value of the present waterfront use, ownership, taxation, lease departments; state parksmost depart- economy? procedures, public trust issues, ments;THIS site surveys and inspections. Are trends apparent? navigation and environmental What kind of businesses are there, protection, bridge and road con- • Existing Human Use and to what degree are they depend- struction, and planning authority. and DemographicFor Trends: ent on the water for their operation or Information sources: State and Who are the users of present-day viability? federal permit agencies; state lands waterfront facilities, and what places What are the business service or agency; local community develop- or activities are "sacred"http://extension.oregonstate.edu/catalog to local folks other linkages to downtown busi- ment and planning offices. or visitors? nesses? What are the national, regional, With respect to market demand, and local trends in population what are some realistic opportunities for redevelopment and restructuring the local economy?

Waterfront Revitalization for Small Cities 35 Identifying Important share their concerns, frustrations, and Sorting issues by geographic aspirations. This also is a great area—downtown waterfront, port Waterfront Issues opportunity for the planning team to docks, et cetera—also might be a Just what is an issue in the context explain the planning process to useful organizing scheme. of waterfront planning? Here, we interested citizens. Surveys of public The next step is to rewrite the define an issue as a specific, clear opinion also might be made, perhaps issues as clear, concise statements of statement of a problem or an unrealized using a questionnaire published in waterfront problems or opportunities. opportunity, usually stated in negative the local newspaper. Sounds easy, but it isn't. Reviewing terms. Members of the planning team the issue statements against some For example, one issue might be also might meet with individuals or criteria can help with clarification: that "safe, inviting access between the particular groups separately—such as • Who experiences this as a downtown and waterfront is hin- property and business owners, problem or opportunity? dered by fast-moving vehicular downtown groups, historical socie- • Where and when is this a traffic, dark streets and alleys, and ties, and environmental organiza- problem or opportunity? unsightly appearance." Clearly, this tions. This approach gives key people • What would happen if nothing problem of waterfront accessibility is an opportunity to share concerns they were done?DATE. one the community will have to solve might not be willing to air in public. • Is this problem or opportunity as it redevelops its waterfront. Figure 3 is a checklist of typical germane to the waterfront? A variety of issues will be ap- waterfront issues that might be used OFIssue statements are then rewritten parent at the outset of the planning to initiate this process. and condensed to one or two sen- process and, in fact, may be the After using a variety of techniques tences. This is a critical part of the impetus for getting the waterfront to identify important waterfront process—incorrect identification of effort underway. Other issues will issues, the planning team can then issues will lead the waterfront surface during the inventory and sort and organize them, perhaps in a planning process off in the wrong mapping effort. framework similar to theOUT waterfront direction. One good way to start a more plan elements—economic develop- Clear, concise identification of formal process of identifying water- ment, land and water use, urban waterfront planning issues leads front problems and opportunities is design and aesthetics,IS recreation, directly to the setting of goals and to hold a public workshop, forum, public access, circulation and objectives, discussed next in Stage waterfront tour or other meetings parking, historic and cultural, and Three—Developing the Waterfront Plan. where local citizens can interact and environmental quality—suggested in the next section. Stage Three—Develop- ing the Waterfront Plan. information:

PUBLICATIONcurrent most THIS For

Waterfront walks help http://extension.oregonstate.edu/catalogthe public and the planning team think critically about the waterfront, its problems, and opportunities to correct them.

36 Waterfront Revitalization for Small Cities Figure 3 Waterfront Issues Checklist

Economic Development Issues Barriers to pedestrian/vehicular access to waterfront Depressed or cyclical local economy Railroads Seasonal nature of waterfront use and activities Highways Economic dependence on single industry Land-Use Under-utilized, obsolete structures Structures Shortage or surplus of space for water dependent industry Separation of downtown from the waterfront Uncertainty about future land / water access requirements Land uses Inadequate harbor channels, basins, or moorages Street patterns DATE. Industrial Topographic features (e.g. bluffs) Commercial Security of individuals and public and private facilities Recreational Vandalism OF Poorly protected facilities (seawalls, breakwaters) Transients Crime Land and Water Use Issues Periodic problems (night, weekends, and so on) Pressure for displacement of maritime industries Public and private liability for the public safety Gentrification MaintenanceOUT of public accessways and facihties Tourism Unrealized opportunities for interpretation Public access and uses Increasing tax assessments ISCirculation and Parking Issues Increasingly restrictive zoning Unsafe traffic conditions Other conflicting land uses Lack of separation of vehicles, bikes, and pedestrians Problematic ownership patterns Inadequate parking adjacent to waterfront Absentee owners Too much of waterfront allocated to parking uses Sites in probate Inadequate public transportation Awkward sized or shaped parcels information: Fragmented pubhc-private ownership Historic and Cultural Issues Derelict structures, abandoned sites, and eyesores Deteriorated or unprotected historic and cultural structures and places Urban Design and Aesthetics Issues Threatened "sacred places" for local people Important trees and vegetated areas Tourist and resident conflicts Changing urban character Disappearing Native American and folk traditions Strip development current and stories Blocked viewsPUBLICATION Solid waste disposal Environmental Quality Issues Wetlands and wildlife habitat preservation Recreation Issues most Water quality, pollution problems Overcrowded or inadequate public facilities Hazardous wastes, dump sites, landfills THIS Demand for recreational uses that is not met Erosion, flooding, or landslide hazards Use conflicts among recreational users and with other waterfrontFor users Institutional and Jurisdictional Issues State and local government conflicts Public Access Issueshttp://extension.oregonstate.edu/catalog Submerged lands leasing terms and rents Inadequate/poorly sited public access (physical or visual) Planning, permit, and environmental requirements Inadequate disabled access Poor cooperation or too much competition among local governments

Waterfront Revitalization for Small Cities 37 The fundamental question a eyesore, better used for a mixed-use community faces is "What commercial development with park- do we want for the future of like public access. These are the types our waterfront?" of decisions the community will need The corollary question—"How do to make in putting together the we get there?"—also is important. waterfront plan. The tasks involved In the simplest terms, these two are listed below and amplified in questions are what the waterfront subsequent sections. plan is all about. The waterfront plan • Defining Plan Elements: The gives shape to the various ways a elements of your waterfront plan are community's goals might be realized. its organizing framework—similar in It brings together, in a single docu- some respects to the suggested ment, all the planning elements a organization for inventory needs and community must consider before issue identification in Stage Two— embarking on a major waterfront Surveying the Waterfront. As you development project. define theDATE. unique elements you want This is the time to consider the to include in your plan, you will be broader ramifications of downtown characterizing the waterfront as it waterfront development. exists now—defining its strengths • How will traditional marine OFand weaknesses, problems and businesses be affected by new opportunities—and beginning to Developing the commercial development and public consider ways it can be improved. access? This step leads directly into the Waterfront Plan • Are port-related industrial uses next. declining, steady, or growing?OUT And • Formulating Waterfront Goals how long into the future are these and Objectives: Drafting a water- trends predictable? front mission statement helps How much waterfrontIS land should align overall priorities with the func- be "banked" for future marine- tions the waterfront serves. Writing industrial use? specific goals and objectives is an To a port manager, a vacant, or orderly way for a community to underutilized parcel of waterfront transform its present waterfront land may represent a bargaining chip problems and issues into opportuni- for economic development, while to ties for the future. the city manager,information: the same site is an

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38 Waterfront Revitalization for Small Cities Goals are like destinations the scheme that will be incorporated into Under each plan element we have community wants to reach; objectives the final waterfront plan. noted pertinent inventory items are the route maps to get you there, • Adopting the Waterfront Plan: identified in Stage Two—Surveying the and the mileposts to show you how Having the plan formally adopted by Waterfront, and, where relevant, we far you've come. Goals and objectives the city or town is an important step. have referenced specific sections of are written for each plan element, Formal adoption sets the stage for Waterfront Uses and Activities, from and in some cases, for specific implementation of appropriate land Part III—Revitalization Issues, Tools and geographic subareas. use controls, solicitation of funds for Techniques. • Developing Alternative Design public facilities, and marketing the Schemes: The waterfront plan plan to the private sector. Economic Development seemingly must deal with everything Element at once—how waterfront land will be used; where parks will be located; The waterfront plan can be a routes for vehicular circulation; Defining Plan Elements vehicle for making conscious choices bikeways; pedestrian walkways; about the waterfront's role in the A waterfront, particularly a busy economic development of your preservation of historic structures one, is a complex place. There's lots DATE. and spaces; and ideas for interpreta- community. The economic of activity. Boatyard workers and development element is used to tion, art, and festivals that will fishermen mingle with local residents enliven the waterfront. describe the present contributions and visitors. Traffic congestion affects OFyour waterfront makes to your Creating alternative design access and parking, and creates schemes—each of which emphasizes community's economic well being, to pedestrian hazards. Abandoned identify the factors affecting the one goal over others—helps the buildings abut new ones, and frag- growth and survival of firms and community decide what the water- mented public and private ownership front should look like, in terms of industries located there, and to patterns create a confused array of suggest possible strategies for how areas are used, and what types businesses and facihties. OUT of buildings and other structures will enhancing and restructuring the Developing a coherent plan of waterfront economy in the future. be permitted. Alternative design action for such a waterfront requires schemes also give the community a As was pointed out in the intro- an organizing frameworkIS that sorts ductory pages of this guidebook, the visual and geographic context for its out these complexities but, at the waterfront goals. waterfront has been home to indus- same time, recognizes and reflects the tries which, in many cases, built the • Making Cost Estimates: Esti- many interrelationships. mating the costs of waterfront im- communities that house them. Some That's what plan elements are all of these industries are gone, others provements envisioned in design about. schemes serves several purposes. are hanging on to shrinking markets, A plan element is the place to and a few have grown and prospered. First, it helps keep the proposed characterize theinformation: waterfront you have schemes reahstic and in scale with the As demographic changes occur in come to understand through water- our society; leisure, tourism, and size and character of the community. front surveys and inventories—to Also, it helps make sure that recreation become increasingly describe it in ways that lead directly important activities that our water- citizens and decision-makers aren't to setting goals for its revitalization. surprised when the final design fronts can help service. Having lost As you address these plan their mills and fishing fleets, some scheme is proposed. elements, you are incorporating Finally, knowing what it will cost communities view the visitor, tourist, relevant inventory and map data, and or retiree dollar as something to be to implement the plan helps market currentit placing the important issues to private investors. fought for. However, in other com- PUBLICATIONidentified in Stage Two—Surveying the munities, the pressure placed on • Design Evaluation and Synthe- Waterfront on the planning agenda. sis: Evaluation of alternative design waterfronts and services by those While the issues your community same visitors is perceived as a threat schemes takes place on two levels. chooses to address in its waterfront One is a rigorous, criteria-based to their "way of life." plan will depend partly on local Thus, the issues you consider as evaluation process thatmost considers factors, most communities will find how each design stacks up against you debate the future of your water- THIS they have many issues in common. front will almost certainly have an the community's waterfront mission The following is a catalog of plan statement, and specific goals and impact on your local, and perhaps elements covering all the waterfront- your regional economy. Questions objectives. For planning issues found in our The other part of the evaluation you might ask could include: case-study communities—economic How will port operations be af- process is more intuitive—what feels development, land and water use, right to those who http://extension.oregonstate.edu/cataloghave a stake in the fected by commercial development? urban design and aesthetics, recrea- What industries might move to the waterfront, especially local residents. tion, public access, circulation and The synthesis that emerges from area if large waterfront land parcels parking, historic and cultural, and were assembled? this evaluation process is the design environmental quahty.

Waterfront Revitalization for Small Cities 39 especially economic development, recreation, public access, and circulation and parking. To a large extent, land use determines the demands placed on the streets, utilities, parks, trails, and other public services your community provides. However, economic development strategies will influence the amounts of land and water space that must be made available for industrial expansion, new commercial development, commercial navigation, and for recreation and tourism uses. Predicting such space needs for future waterfrontDATE. users is fraught with uncertainty. Anticipated waterfront industrial growth may not materialize; or, conversely, growth OFmay exceed all expectations. Questions that might have to be answered in deciding to give one kind of land or water use a higher priority in the waterfront plan than OUT another, include: • Should the marketplace alone determine how scarce shoreline land IS is allocated among competing users? • Do some uses have a "natural" A trawler approaches the dock at Newport. Scenes such as this draw tourist traffic from claim to the waterfront? Highway 101, which spans the ship channel in the background. • How much land should be "banked" for future industrial use? Would creation of an historic a migratory fishing fleet to use the • How much of the waterfront waterfront district encourage new boat harbor for its home port, or a should be in public-sector control to commercial investment in the area, new restaurantinformation: could anchor other provide for parks, waterfront access, which, in turn, might increase visitor retail stores not able to make it alone. commercial navigation, or recrea- expenditures in the community? On the other hand, a fabrication yard tional boating facilities? When deciding what enterprises for large floating structures such as Some communities have benefited the community will seek to bring to oil rigs might compete with other by viewing the waterfront from a the waterfront, it should be remem- established industries for a limited water-to-land, rather than a land-to- bered there will have to be trade-offs skilled, local labor force, producing water perspective—seeing the water- between economic and other impacts. only temporary local economic bene- front for the uniqueness of the While economic impacts are currentfits, while straining local services. services it provides the community. measured in jobs andPUBLICATION income (see By reviewing and organizing This puts such services foremost in sidebar), there are other criteria to waterfront economy and business the considerations for allocating take into consideration when survey information under this waterfront space among all the assessing the overall impact of a new economic planning element, and competing uses. (See Sidebar: Water- waterfront enterprise. using it to help frame your economic Dependency—Some Users Need the One is the elusive most"quality-of-life" development goals, you will be on Waterfront More Than Others.) factor.THIS Will the community be better your way to circumventing many of For a detailed discussion of land off with a new waterfront enterprise these potential problem areas. and water uses, see Waterfront Uses that produces jobs and income, if it and Activities in Part III—Revitalization also producesFor noise, dust, and Land and Water Use Element Issues, Tools and Techniques. wastewater, and blocks views and Land and water use is a central physical access to http://extension.oregonstate.edu/catalogthe water's edge? element in the waterfront plan in that Another consideration is the it will influence the way the degree to which a new enterprise waterfront will be used and managed supports or detracts from an existing, in the future. long accepted industry. For instance, The land and water use element is a new boatyard might help persuade closely tied to other elements—

40 Waterfront Revitalization for Small Cities Urban Design One controversial issue that arises on the design of features that are and Aesthetics Element under this plan element is design clearly within the community's control. Should the community have purview. Public buildings, streets, The pleasure that the waterfront a say about the appearance of its parks and other community infra- brings residents and visitors alike waterfront district? And, if so, should structure—whether built by the stems, in part, from the fascination it insist on a preconceived design Public Works Department, the Parks water holds for people and, in part, theme? Department, or the local Port Dis- from the quality of the built Most design professionals advise trict—are investments of public funds environment at the water's edge. against a theme approach, seeing it as in the waterfront. Clear goal state- In the inventory of Landscape stifling design creativity and shutting ments developed under this plan Features and Urban Design Quality, off the flow of innovative, contempo- element can help ensure these public you discovered those features that rary development. However, most works enhance, rather than detract gave your waterfront its own unique designers would welcome design from the visual integrity of the built character, where its image was review by a responsible and account- waterfront. strongest and most memorable, and able review board (see Design Stan- what detracted from it. In the urban dards under Land Use Controls and DATE. design and aesthetics element, the Recreation Element Techniques in Part III—Revitalization planning team can address ways to The waterfront is expected to Issues, Tools and Techniques). build on the waterfront's positive provide recreation for everyone. Our Whatever the position your image, while ameliorating the health- and fitness-conscious society community adopts on design control OF visually-offensive, disturbing, or is demanding more space and for private development, much of the ambiguous aspects of the district. facilities for active recreation, while character of the waterfront depends

I Assessing Economic Impact OUT

There are several measures of economic impact ISAlso, a business, either basic or non-basic, that buys available to help make prudent decisions about the its raw materials from local vendors has a greater im- waterfront's role in community economic development. pact than one that imports materials from outside the The most common are economic multipliers—called community—more of the firm's money stays in the com- multipliers because they measure the tendency of munity. Additionally, the more local labor employed money generated from a firm's sales to circulate in the by the business, the better it is for the community. community before "leaking" away to firms, individu- A complication is that some service or non-basic als, or governments located outside the local area. In information:firms sell to out-of-town visitors and tourists, making other words, the initial impact of a dollar earned in a them partly-basic industries! Tourist-serving hotels community multiplies as it is re-spent in the commu- and motels, restaurants, and marinas falling into this nity. There are three kinds of economic multipliers: category can be an important part of the waterfront output (or sales), income, and employment multipliers. community's economic base. The income multiplier is probably the best guide for Economic impact models—usually known as assessing the impact of a new waterfront industry in a input/output models—can be of help, but are rarely small community . It measures the additional amount available for regions smaller than a county and often of money put into the pockets of thecurrent local population only exist at state-levels. Thus, the precise effect new as a result of eachPUBLICATION dollar of sales generated by the new economic activity will have on your community will firm. For example, a firm generating $0.97 of addi- likely be unknown. However, these more aggregated tional community spending with each $1 of sales is county or state economic models can be useful—by more appealing than one that generates only $0.30 per comparing the candidate waterfront industry multipli- dollar of sales. ers reported in such documents, you may be able to Other things beingmost equal, a business that sells its gain some insight as to the effect such industries might productTHIS or service outside the community has a have on your community. greater economic impact than one that sells only Other sources of information for economic-impact locally. Businesses in the former category are defined analysis are: as export orFor basic activities and generate "new" money, • local economic development councils; inducing new economic activity in the community. • local or state public port authorities; Businesses in the latter category are called service or • chambers of commerce; non-basic activitieshttp://extension.oregonstate.edu/catalog and live on income produced • university Sea Grant and Extension Service elsewhere in the community. economists, and community development specialists; There is good reason, then, for communities to pursue • state and federal planning and economic a manufacturing plant (export or basic) more vigorously development agencies. than a fast food restaurant (service or non-basic).

Waterfront Revitalization for Small Cities 41 the elderly, and disabled—as well as many of the younger and perfectly healthy amongst us—value more passive waterfront pursuits. Bike and jogging trails, and launch facilities for —- •■ I .. - f _J^- s~~- car-top boats need to be provided for some; benches and boardwalks, and powerboat moorage for others—the list goes on and on. The inventory items. Waterfront Physical Access and Infrastructure, and Existing Human Use and Demographic Trends will have uncovered present recreational-use patterns found on your waterfront, as well as some of its limitations for meeting present DATE. and future recreational demands. Relevant issues might include user conflicts, traffic safety and circulation problems, inadequate public shelters OF and restrooms, and barriers to disabled access. Other challenges posed by the Seen in this broad fashion, access envisioned in a comprehensive recreation element entail resolving opportunities present themselves in public-access plan. conflicts among the various recrea- unexpected ways and at OUTunexpected The inventory items. Natural tional user groups, and between these places along the waterfront. Resources and Attributes, Land and recreational users and waterfront The public access element provides Water Use and Ownership, Building industry groups. an opportunity forIS the planning team Appearance and Historical Survey, Just as there are water-dependent to explore ways to integrate all three Traffic Circulation and Infrastructure, economic activities, some recreational kinds of access—physical, visual and and Waterfront Physical Access and activities can be pursued only along interpretive—along the entire water- Infrastructure, will provide informa- the length of the waterfront or across front, while respecting the needs of tion about your existing waterfront it—watching marine birds from waterfront industries for a safe and essential to addressing this plan waterfront trails, or hand-launching secure work place. element. (Also see Public Access, and accessing moored boats. Volley- Access thatinformation: is gained in a piece- Viewpoints, Historic and Cultural ball, golf, and jogging and biking can meal fashion, as development proj- Resources, and Waterfront Interpreta- take place at alternative upland sites. ects are undertaken, is less likely to tion, under Waterfront Uses and (See Waterfront Parks and Public Access serve the public as well as the kind Activities in Part III—Revitalization under Waterfront Uses and Activities in Issues, Tools and Techniques.) Part III—Revitalization Issues, Tools and Techniques.) Circulation and Parking Element Public Access Element current This element is closely tied to land The public-accessPUBLICATION element needs to and water use, economic develop- consider three interrelated aspects of ment, recreation, and public access access: elements. Physical access to and along the If successful, revitalization will water's edge; most change the kinds of waterfront use Visual access to the water from activities and the times of day people uplandTHIS viewpoints, or through view engage in them. This will shift and corridors and easements between intensify the use of waterfront streets, structures, can help reconnect the trails, boardwalks and parking communityFor to its waterfront; and facilities. Furthermore, reconnecting Interpretive access, through the waterfront with the downtown programs and signs,http://extension.oregonstate.edu/catalog creates an understanding of, and appreciation for, the waterfront, its history, The requirements of all waterfront visitors industries, folklore, and its natural should be considered under the "Public environment and wildlife. Access " element of the waterfront plan. This fishing pier at Edmonds was designed to be accessible to visitors in wheelchairs.

42 Waterfront Revitalization for Small Cities 1 Water Dependency—Some Users Need the Waterfront More Than Others

Waterfront uses can be considered in two ways— Firms such as these are usually described as water- first, by asking what their purpose or function is; and, dependent, or water-related^—depending upon their second, by asking why they are on the waterfront. degree of dependence on the waterfront location. The first question reveals the kind of businesses found Water-dependent firms cannot survive away from the on the waterfront and their economic sector: construc- water's edge. Water-related firms gain varying de- tion, manufacturing, wholesale distribution, retail trade, grees of cost savings by being on the waterfront, but transportation, and business or personal services. they may be able to function on upland sites. The second question deals with a business' need for State coastal management programs generally give access to water or its degree of water dependency— priority to water-dependent over non-water-depend- there are some businesses from each sector of the ent uses for shoreline sites, aDATE. policy based on the economy that are highly dependent on water access: premise that waterfront land is a scarce resource. • Dredging and marine construction contractors Frequently, state submerged-lands agencies will write • Manufacturers that ship or receive products leases with preferential rates and terms to water- by water dependent or water-relatedOF lessees, while assessing • Ports and waterbome transportation companies market rates to non-water-dependent businesses. • Grain shipping terminals Agency managers admonish cities to use their • Retail boat dealers waterfront lands carefully to prevent urban growth • Yacht brokers spilling over into rural shorelines where beaches, • Marinas and boatyards wetlands, and other natural areas are to be protected. • Oil-spill clean-up firms OUT IS

information:

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Retaining adequate space for water-dependent commercial and industrial uses is a priority in many small communities.

Waterfront Revitalization for Small Cities 43 may entail forging pedestrian links across active railroad tracks, and across arterial streets that carry heavy truck traffic. As it addresses the circulation and parking element, the planning team will need to consider the effects all this new activity could have on the "working waterfront." The new needs of waterfront shoppers, strollers, bicyclists, and boaters must be balanced against the continuing needs of fishing fleets, seafood plants, cargo docks and other waterfront industries. To remain viable, these industrial users will need continued DATE. truck access, load/unload zones, and remains on the waterfront. This plan enhances economic development and employee and visitor parking. element is strongly connected, then, recreation on the waterfront—while, The Traffic Circulation and Infra- to the public access (interpretive) at the same time, certain kinds of structure, and Land and Water Use and element. OFdevelopment compromise fish and Ownership inventory items will be This element also presents oppor- wildlife values, and detract from or helpful for understanding how tunities to consider contemporary destroy particularly pleasing existing waterfront industries and the cultural aspects of waterfront revitali- landscape features. The inventory downtown traffic patterns relate to zation. Festivals and other special items Soils, Geology and Hydrology, one another. (Also see Traffic Circula- events enliven the waterfront,OUT and and Natural Resources and Attributes, tion, Parking, and Public Access, under this is the time to explore possible will have identified those features of Waterfront Uses and Activities, in Part themes, sites and sponsors for such the environment requiring special III—Revitalization Issues, Tools and events. And don'tIS forget art and the care and attention in the Techniques.) delight, puzzlement, and even humor development of your waterfront plan. it can bring to the waterfront Some of these environmental Historic and Cultural Element viewer—especially the child! (See features—for example, wetlands and Some of the oldest and Historic and Cultural Resources, submerged lands—are guarded by architecturally richest structures in Waterfront Interpretation, Art on the state and federal resource agencies the community are likely to be found Waterfront, and Special Events and that you would be wise to consult on the waterfront. Waterfront Festivals, underinformation: Waterfront Uses and before proceeding very far with the inventories will have identified these Activities in Part III—Revitalization waterfront plan (see Involving State structures {Building Appearance and Issues, Tools and Techniques.) and Federal Agencies under Stage Historical Survey), their contribution One—Getting Started in Part II— to the district's urban design quality Environmental Quality Revitalizing Your Waterfront). {Landscape Features and Urban Design Element Other features—special views, a wooded bluff, an old, well-loved Quality), and their condition {Building This plan element is placed last, tree—are safe only as long as there is Structural Soundness). In addressing not because it is less important than a constituency calling for their con- the historic and cultural element, thecurrent any of the other elements, but community will bePUBLICATION working with servation, and an element in the because it is connected to all of them. waterfront plan to carry it out. property owners and historical Good environmental quality experts to determine which structures can and should be saved, and how to ensure that they are saved. In addition to historicmost buildings, thereTHIS are historic vessels, places and events which present opportunities to conserve the area's maritime heritage. Historic vesselsFor whose working lives were tied to the community can be brought back, renovated, and made a permanent part ofhttp://extension.oregonstate.edu/catalog the waterfront; and places and events can be remembered through interpretation, even though no vestige of their presence

44 Waterfront Revitalization for Small Cities carried out and help identify additional information needs to support the ongoing planning process. Finally, they serve as valuable reference points and evaluation criteria as the planning team develops alternative design concepts and considers specific projects and proposals. The formal process of goal setting is often shortchanged. Those in a position to make community decisions frequently assume they know what the community wants. To a degree, this is often true, especiallyDATE. in small communities where informal communication networks reach into nearly every business, civic group, and household. OFHowever, this network can easily lead to miscommunication—as illustrated by the childhood game "Telephone" where, as the whispered message makes its way around the OUT table, its content and meaning change to the point it becomes unrecogniz- able to the child who originated it. Beyond safeguarding healthy envi- important about yourIS waterfront? The goal-setting process is a good ronmental resources, the waterfront What should its major functions be? place to involve as many local plan can be used to restore and Whom should it serve? Miss this step residents as possible. Community enhance degraded ones. Arcata's and you'll never be sure what the workshops or charrettes are excellent waterfront salt marsh restoration waterfront plan has accomplished. ways to get people in the community project (see page 18) may seem like Clear goals and objectives serve to to interact, share ideas, and develop an unusually extensive undertaking direct, educate, and inspire the consensus. A variety of other tech- for a small city, but most waterfront people involvedinformation: in the process, and niques, such as media-based balloting communities have at least one, communicate the intent of the or phone surveys, also can be used. formerly productive, habitat area community to interested people (See Appendix A—Citizen Involvement which could be restored. An inter- outside the process. They also Techniques.) Getting the community tidal mudflat buried by road con- suggest how that intent will be involved in goal setting, as in other struction debris; a once-vegetated parts of the planning process, also riverbank, now denuded and erod- builds commitment and interest. The ing; or, an abandoned industrial site basic steps for effective goal setting leaching contaminants into the watercurrent follow. are prime candidatesPUBLICATION for restoration. An action agenda to remove the fill, Drafting a Waterfront fence and revegetate the streambank, Mission Statement and clean up the toxic wastes, would complement development projects Mission statements are usually and win allies in agenciesmost and drafted to guide the behavior of environmental organizations. organizations—corporations, THIS institutions, agencies, for example. But they can be useful in guiding the Formulating Waterfront revitalization of your community's For waterfront by providing overall Goals and Objectives v. wfJj^.'T* guidance for establishing more Here is the placehttp://extension.oregonstate.edu/catalog to declare what specific planning goals. Waterfront you want the waterfront in your mission statements define the chief community to be like. What is functions or purposes of the waterfront. An example might be: Restoration of Butcher Slough — part of the "The waterfront should continue Marsh and Wildlife Sanctuary project in to serve the community by providing Arcata, California. facilities and services for water

Waterfront Revitalization for Small Cities 45 What Is A Goal? An Objective?

There is a lot of confusion about what a goal is Goal: To provide safe, inviting, convenient pedestrian versus an objective. Here are the definitions as used in access between downtown and the waterfront. this guidebook. An objective is a concise, measurable statement of A goal is a broad statement of what you want to what the community will accomplish within a given accomplish. The simplest way to write one is to turn a time frame. negative problem statement into a positive one. Example: Within 6 months, the community will have Problem: The waterfront is cut off from downtown by developed a downtown-waterfront public access plan. unappealing land uses and by poorly maintained (There may be many more specific objectives associ- streets lacking sidewalks. ated with the general goal statement.) DATE. dependent industry and navigation, Developing Alternative of design schemes to emerge. Each and recreation and enjoyment, while scheme might emphasize a different sustaining clean waters and fish and Design Schemes primary goal—creating new public wildlife habitat." Up to now, the waterfront plan hasOF access, accommodating expanded The generality and inclusiveness of consisted of an overall mission industry, conserving historic this mission statement helps ensure statement and written plan ele- structures, or encouraging tourist- that the community considers and ments—each with a discussion of and visitor-serving commercial balances the multiple purposes of the important issues and specific goals development. waterfront during development of and objectives, supported by relevant Even for a single issue, there may the plan. inventory and map data.OUT Developing be a variety of design solutions that a design scheme to give physical will work. For example, Astoria is Writing Goal Statements shape to these words—putting goals considering several design approaches to meet its goal of Once the community has drafted a and objectives intoIS a spatial and waterfront mission statement and has design context—is the next step. improving public access and creating a place for people along the down- agreed on what the important As used here, a design scheme is a town waterfront. One approach waterfront issues or problems are, it broad term. It includes maps showing concentrates on a single site, where a is time to consider goals. the allocation of waterfront space to major civic pier is proposed. Another The easiest way to write a good different uses and activities; concep- envisions creating a number of street- goal statement is to turn the problem tual diagrams illustrating solutions to end miniparks, connected by a statements around in a positive access, circulation,information: parking, and other promenade adjacent to the railroad context. (See sidebar above: "What is problems; and sketch designs of right-of-way. a goal? An Objective?") Waterfront waterfront spaces, buildings, and In Astoria, and elsewhere, each revitalization goals may cover as other structures. design solution uses land and water wide a variety of topics and areas as There is no one, right answer to areas in different ways, leading to there are plan elements—economic community planning questions—the different development patterns. Each development, land and water use, design process should allow a range design scheme also has different circulation and parking, public access, et cetera. The sidebar on current page 47 has a collectionPUBLICATION of goals from waterfront plans gathered for the writing of this handbook. Establishing Objectivesmost THISIf carried out, objectives are the statements that will help implement the goal under which they are written. ForFor example, if there are few opportunities for waterfront access, building street-end miniparks within a specified time mighthttp://extension.oregonstate.edu/catalog be part of the solution. That would be the objective. The important thing about objec- It's a good idea to involve as many local residents as possible in the goal-setting process. tives is that they be action-oriented Community meetings, telephone surveys, and newspaper polls are some of the techniques that and measurable. That way, it is clear can maximize citizen participation. when the objective has been achieved.

46 Waterfront Revitalization for Small Cities Examples • of Waterfront Revitalization Goals

Economic Development Goals • To protect existing water-dependent and water- related uses and provide for their expansion needs. • To develop the downtown waterfront as a magnet for attracting tourists to the city, emphasizing maritime history and activity. • To promote city revenue-producing development and uses to offset the cost of land acquisition, DATE. facility development, and maintenance. • To promote private investment in restaurants, hotels and other facilities that will make the waterfront a 24-hour-a-day use area. OF Land and Water Use Goals • To encourage a land use pattern that retains the working waterfront character of the area. • To provide for high-density, private residential use, where consistent with public recreational and OUT water dependent industrial and commercial uses. • To reserve water areas in the harbor for aquacul- ture, commercial vessel traffic, log booming, and IS other navigation activities. Urban Design and Aesthetics Goals • To maintain and reinforce the small-town, fishing village atmosphere and character. • To open up attractive "gateway" streets leading from the downtown to the waterfront information: • To make the riverfront a source of enjoyment and pride for local residents. Recreation Goals • To enhance opportunities for greater participation in water-based recreation activities such as boating, fishing, swimming, and SCUBA diving. A long-term goal of Olympia, Washington, is to strengthen the visual • To provide tranquil places alongcurrent the riverfront for linkages between the state capitol and the downtown waterfront. passive recreationalPUBLICATION pursuits, including bird- watching, photography and solitude. Historic and Cultural Goals Public Access Goals • To encourage redevelopment of the area that takes • To provide access for the disabled at all public advantage of its historic character. waterfront sites. most • To preserve and enhance the value and character of • To design spaces, facilities, and features that will places and objects of historic, cultural, and architectural attractTHIS people both day and night, on weekdays and significance to the community. weekends, and during all seasons of the year. • To promote traditional festivals and events that bring • To createFor public, open waterfront spaces that permit people to the waterfront. a wide range of uses rather than single-purpose uses. Environmental Quality Goals Circulation and Parking Goals • To restore degraded wetland remnants to productivity. • To provide a safe,http://extension.oregonstate.edu/catalog efficient system of pedestrian and • To reduce the amount of contaminated urban run-off bicycle access and circulation that links areas along entering the water. the waterfront with each other and with downtown. • To control shoreline erosion using vegetation and other • To provide new parking facihties away from the "soft" techniques, wherever possible. immediate waterfront area.

Waterfront Revitalization for Small Cities 47 financial considerations—"order-of- maps. Finally, it may end up as a located. However, they do begin the magnitude" costs need to be esti- printed document containing process of allocating waterfront space mated for land acquisition and public detailed, almost architectural-quality among the various land and water improvements, and financing drawings of the waterfront, sup- uses and activities envisioned (see strategies need to be identified. ported by descriptive text. sidebar: "Matching Uses With Sites"). Design is an evolving process. It For example, industrial expansion could start as a "bubble diagram" Allocating Waterfront Space could occur between the port docks sketched on the back of a napkin by a During the early stages of the and the main highway, and recrea- planning consultant during lunch design process, alternative schemes tional moorage might be located with the chair of the waterfront are not detailed enough to show adjacent to new commercial develop- planning team. It then might grow exactly what buildings and outdoor ment, allowing shared parking. An during a community design work- spaces will look like, what the content opportunity for visual access to shop or charrette through a series of of interpretive signs will be, or where maritime industrial activity might overlay sketches on waterfront base exist here... here ... and over there. a specific viewing tower will be DATE.

Conceptual ProcessOF for Shoreline Inventory Matching Uses With Sites and Management Planning

1 Inventory Here's one approach to locating land and water Characteristics uses. OUT First, use information gleaned from the waterfront 1 inventories to describe the character of each section of I 1 the waterfront—water depth, accessibility, existing IS Zone 1 1 J 1 1 use, geological hazards, et cetera. At the same time, the needs of various land- and A ■ water-use activities are spelled out—minimum draft at low water, wave protection, proximity to the down- C town, compatibility or incompatibility with other land Etc uses. Then bring these two areas of information togetherinformation: 2 Locational Requirements 3 Zone Suitability to define the type of activity suitable for each segment Charactoriatica Suitability of the waterfront, using terms such as "highly suitable," "moderately suitable," or "unsuitable." Finally, using this new information, examine the fj Typo of Zone i community's written goals and objectives and give Use i f if them geographic meaning. A For example, a goal to expand fishing boat serv- B R*C. Wooragt ices—and its objective, the construction of 25 new C current Shipbuilding moorage slips—can be accommodated on the site be- PUBLICATION F«rry/Toor tween the existing seafood processing plant and the port's commercial boat haven, since the water depths 4 Potentials and Objectives and currents, bank conditions, and upland site con- Shortlln* Management Coals figuration are "highly suitable" for small craft moor- Community Planning ObJ«ctfvM Market Analy«ii ana BudrMM Development Strategy age. most THISThis sort of process, especially when given credibil- 5 Waterfront Development/Management Strategy ^jr ity by active involvement of citizens and agencies, is DMlopnwflt/ Zon*/ PROklECTED ACTIONS productive and leads toward decisions that can be Clo~fflcotion Strategy AND EFFECTS implemented.For Reatrlcl all but Thla wlli allow far 20% axpansion A dMp water 0«p. In dtp water Muatrfoa. Proporty MMB will raqulra upgrodo.

http://extension.oregonstate.edu/catalogEncouraga eballow draft Arwa currwntly 30X vacant. Port W-D InJurty. Allow will launch campaign to attract water-ralated UM« I only am eupfMrt for for thle opprooch favorable.

C Etc Oo.

Source: MAKERS. CH2M-H1I1, Hall and Aeeoc., Urban Wattrfmni Policy Anatyak, 1986.

48 Waterfront Revitalization for Small Cities But other factors need to be considered before inking-in any candidate access site—the need for restricted truck access to the dock; pedestrian safety; links to a downtown park; or, perhaps, the colorful history of a particular marine enterprise. Making Drawings of Design Alternatives As the old saying goes, "a picture is worth a thousand words." Without drawings, citizens and elected officials have difficulty translating waterfront maps and plans into the DATE. three-dimensional buildings and spaces envisioned in the plan. However, with the help of local artists, students, and design consult- OF ants, drawings can be made to bring these design alternatives to life. "Before and after" scenes can be particularly effective in communicating the impact of improved street- scapes. The cumulative effect of OUT planting new trees, installing street furniture, sprucing up storefronts, removing offensive, out-of-scale IS signs, and opening up views of the water at street ends can be a source of amazement for the viewer. When tied to cost estimates and other information, these drawings can be used to inform the community during public meetings, and help information: elected officials make choices and adopt the final waterfront plan. Involving the Community in the Design Process The complexity of developing design schemes that reflect watercurrent front goals and objectivesPUBLICATION need not intimidate the community. A vital role for the planning team is to provide the technical support and informal education necessary to mostencourage the publicTHIS to participate in crafting design concepts for their waterfront. Here—in a storefront; in a meeting hall; or outdoors,For if weather permits—a broad range of citizens' ideas can be tested during community design workshops orhttp://extension.oregonstate.edu/catalog charrettes. Mapped inventories of waterfront site conditions, traffic flows, land ownership patterns, special ecological Before and after drawings effectively communicate design alternatives.

Waterfront Revitalization for Small Cities 49 resources, and so forth, can be sufficient for the purpose of the displayed for reference purposes; project will need to be acquired. A and, perhaps working in small variety of techniques for land groups at different tables, citizens acquisition are discussed in Part III— can be helped to sketch their ideas. Revitalization Issues, Tools and The consultant can then take the in- Techniques, under Land Acquisition. formation drawn from such citizen Submerged-land lease fees and involvement and work with city staff similar expenses should be included or a citizens advisory committee on a as operations and maintenance set of alternative designs to be expenses. presented at subsequent public meetings. Construction Costs Waterfront construction costs vary, but are usually higher than costs for Making Cost Estimates land-basedDATE. construction. This is due primarily to the environment—water, Voters are like bankers—neither currents, waves, ice, salt in coastal like financial surprises. Therefore, it areas, and wood-boring pests. is critically important to make as Construction costs that may be accurate a waterfront-project cost OF encountered in a public waterfront estimate as possible before asking project are listed in Figure 4 and officials to adopt a final plan and include landscaping, construction of commit to its funding. This cost new buildings and piers, alteration of estimate process should begin during existing structures which are to be the development of alternative OUT partly demolished and partly design schemes and be refined as renovated, dredging of channels and design synthesis proceeds, as cost turning basins, construction of alone may rule out some design IS breakwaters, and design fees. approaches. Estimating costs could be an element in the consultant's design Operations contract or could be performed by and Maintenance Costs staff in the city's public works or Improving the waterfront for engineering departments. public use will add costs to the city's The problemsinformation: and conditions parks and recreation, police and peculiar to urban waterfronts—such public works departments. There will as unstable or unconsolidated soils, be more sidewalks to clean, trees and potential toxic contaminants, flood- shrubs to spray and prune, street ing, and environmentally sensitive furniture and public restrooms to areas—demand that experienced maintain, and the damage of professionals scrutinize cost esti- vandalism to repair; and festivals and mates before they are presented to other waterfront events will require currentthe public and their elected officials. police personnel for traffic and crowd PUBLICATIONIf the local port district retains an control. engineer on its staff, that person As a consequence, city budgets might be ideally qualified to review will need to be adjusted to ensure cost estimates for any marine con- these services are provided. If water- struction components of the plan front activity spawns new businesses most alternatives. and increases sales in those in the THIS Project costs are comprised of immediately-adjacent downtown three components, each of which is area, property assessments and tax ^c'v ■.■.is^;«5i\^v^'%.. ■■■%< 'A&i V^ discussed below—land acquisition receipts may increase enough to For costs, construction costs, and opera- defray the added costs of public tions and maintenance expenses over Before and after drawings effectively services. However, there is likely to communicate design alternatives. the life of the project. be a lag of several years before tax http://extension.oregonstate.edu/catalogreceipts catch up with expenses and, Land Acquisition Costs in the meantime, monies must be If the city or port already owns the found to pay the operation and main- land, this item will not apply. tenance bills. Otherwise, ownership rights

50 Waterfront Revitalization for Small Cities Identifying Funding Sources Design Evaluation are identified and cost-estimate com- parisons made. For example, while Funding sources and methods and Synthesis need to be addressed, at least in a one design scheme may not give the fishing community as much water- preliminary fashion, at the design If each of your community's front space as was wanted, it contains alternatives stage. waterfront goals and objectives is tied less commercial development en- • Who will pay for the improve- to a measurable criterion of success— croaching on their waterfront "turf," ments being suggested? such as length of bike and pedestrian and costs less than another alterna- • Where can the community turn trails, square feet of retail space, for construction loans? number of historically significant tive. In another situation, the local • Planning grants? structures preserved, and percentage historical society representatives like • Land acquisition monies? of downtown shoreline accessible to a scheme that preserves an historic boat landing, but they are also drawn • How much local bonded indebt- the public—the design components to another scheme that proposes an edness might the voters reasonably addressing them can receive an interpretive historical trail from the be expected to authorize for water- objective and comparable assessment old downtown to the marina. front needs versus other compelling in each alternative scheme. This DATE. local capital needs? process requires active, involved • Can the local port district share community participation. Synthesizing Design Schemes in the costs of contemplated marine An important advantage gained Proponents from each interest improvements such as a boat launch, from such a rigorous public evalu- OFgroup gradually begin to realize they a visiting vessel moorage, or a ation of alternative design schemes is must each give up a little in order to waterfront landing? a political one—if the components of get most of what they want. Trade- Answers to these and similar each alternative design scheme offs occur—land use patterns are questions are important considera- received an objective "score," elected adjusted; a street is widened here; a tions in the next step, design evalu- officials can point to their decision-OUT public accessway extended there; ation and synthesis. process record and more easily commercial fishing boat moorage is defend their choice of a final water- included in the new marina; and, to front plan. IS make way for more open space, As the community reviews the commercial development is more alternatives, the best features of each densely concentrated in a smaller

^—--

Figure 4 Waterfront Construction Costs Checklist information: Demolition, Site Clearing, and Site Improvements Small Craft Harbor or Docking Facilities Costs demolition of dilapidated structures dredging of the marina basin and navigation removal of dilapidated pilings channel removal and disposal of contaminated soils breakwaters new pilings and decking (over-water development, floating docks and piers boardwalks) pilings new shoreline bulkhead current on-dock utilities outdoor lightingPUBLICATION fixtures boat sewage holding tank facilities street furniture fuel dock signs boat launch ramp utilities most navigation aids, buoys landscaping and paving THIS Other Costs Building Construction design fees (architecture, landscape architecture. buildingFor foundations engineering, soils surveys, et cetera) building core and shell taxes, legal, insurance repairs to existinghttp://extension.oregonstate.edu/catalog structures permits, testing, environmental impact statement finishing and fixtures environmental mitigation for dredging and filling wetlands, or subtidal marine habitat Development contingency (usually 10 percent of construction costs)

Waterfront Revitalization for Small Cities 51 area. From this synthesis process, a new design scheme emerges that combines the best features of each alternative, while eliminating the weaknesses. This composite design, together with revised cost estimates, becomes the design scheme folded in to the final plan. What to do about Unresolved Issues Almost surely, there will be controversial issues identified in the design process that cannot be resolved. Areas of contention will DATE. remain—an historic building's fate remains uncertain because of absentee-ownership problems; a marina's expansion plans run afoul of OF conservationist concerns for an intertidal habitat area; or the port's plan for expanding a cargo dock precludes continuation of a A working boatyard and derelict wood structure block completion of a public access walkway waterfront bike path. along Olympic Beach in Edmonds, Washington. Such problems must await a change in use Debate over alternative design or ownership before being resolved.OUT schemes will help focus and narrow the range of disagreement over such IS contentious issues. Terms will be design synthesis, by the community's public opposition where its involve- defined, positions aired, hidden elected governing body. ment has not actively been sought. agendas exposed, and fact separated In many states, an Environmental Local government's adoption of from opinion. Finally, even if a Impact Statement (EIS) or report may the waterfront plan may not guaran- compromise is not reached before be required before such an action can tee successful revitalization of the design alternatives are presented to be taken, and public hearings on the community's waterfront, but it will the public, the ground for resolution adequacy of the EIS would have to be make easier the zoning changes and of the issue at a later time may have held prior to information:plan adoption. The other formal land-use decisions been laid. intent of such environmental impact elected officials must make to imple- legislation is to open governmental ment the plan. Adopting the Plan decisions affecting the environment For the many citizens and business to public scrutiny. However, EIS leaders who have volunteered their The final step in this stage of hearings are no substitute for a time to develop the waterfront plan, revitalizing the community's water- consciously designed and imple- formal adoption is an important front is the formal adoption of the currentmented public involvement program, milepost—they can celebrate their waterfront plan, including the final and may instead serve to galvanize success and gear up for the next PUBLICATION phase—plan implementation.

Some Conflictsmost and its industrial tenants, and that of the City of Port ITHIS Don't Get Resolved Right Away Angeles and its downtown merchants. Each alliance saw the vacant land parcels as a logical location for its During the late 1970's, while planning for the future own economic development and expansion. In the use of theFor Fort Angeles waterfront, agreement was plan finally adopted, an "in transition" zone was achieved over virtually all land and water areas except agreed upon, with future uses to be decided on a case- one key parcel—the use of which remained unre- by-case basis. solved long afterhttp://extension.oregonstate.edu/catalog the city adopted its waterfront In 1989—more than 10 years later—the issue has revitalization plan. been resolved in another round of harborfront plan- This parcel, located between the port docks and the ning, and the port and city have agreed on the com- downtown waterfront, was the dividing line between mercial use of the site. the respective territories of the Port of Port Angeles

52 Waterfront Revitalization for Small Cities Many a waterfront redevelop • Implementing Land Use ment plan lies gathering Controls and Incentives: Implement dust on the library shelves land-use controls that allow, not of municipal planning de- stifle, appropriate private develop- partments. Dusted off years later, ment on the waterfront, and protect these reports will yield nuggets of existing marine industries from ideas, and people will ask, "Why "gentrification." didn't anything come of these plans? Develop design standards and What went wrong?" implement a design-review proce- Sometimes—even when there is dure to ensure that future develop- strong, vocal support for the plan— ment conforms to and enhances the other pressing priorities have first community's authentic visual image. claim on scarce municipal funds, or Protect historic structures and sites there is a change of city leadership on the waterfront by creating special and officials either oppose or do not districts, by nominating historic enthusiastically support the water- buildingsDATE. and vessels for National front plan's agenda. Historic Register status, and by In one Washington community helping owners find funding sources where waterfront improvements for renovation projects. were tied to a major parks bond issue OF• Acquiring Necessary Parcels of Implementing that included many non-waterfront Waterfront Land: Assemble the amenities, the whole measure went parcels of land needed to implement the Waterfront down to defeat despite support for its the plan, choosing the least-cost waterfront components. acquisition techniques that will best Plan More often the plan is seenOUT as too accomplish the objectives. grandiose, too expensive, and out-of- • Phasing Waterfront Redevelop- scale with the community's self- ment: Because waterfront redevelop- image. The public, IShaving been ment tends to occur in phases or insufficiently involved during con- stages, it is important to break up the ceptual design, is caught by surprise overall plan into smaller, more easily and votes "No!" on a bond issue. implemented projects. In small Another possibility is that when communities (and large) it is rare for the first major project is proposed, all the necessary factors—financing, state or federal resource agency land and building availability, and reviewers insistinformation: on further planning permits—to come together at the studies before they will approve same time. Smaller, stand-alone permits for construction. Given the projects have the best chance of number of agencies with some kind actually being constructed. of jurisdiction on the waterfront, • Identifying Project Sponsors several more years can elapse before and Funding Sources: For each planning study findings are approved. project, have a sponsoring entity While there are no guarantees, agree to champion the effort—the city currentcertain steps can be taken to miniparks or public works department to PUBLICATIONmize the risk of inaction. These steps improve a critical pedestrian access- are summarized below and are way, or the local port district to build amplified in subsequent sections. and operate a visiting-boat landing. • Managing the Waterfront Similarly, identify a primary and Revitalization Process: Form a wa- backup funding source and a key most terfront revitalization management individual in the city (or other THIS team comprised of working represen- sponsoring entity) to track those tatives from all the project sponsors, sources for funding availability as well as community members-at- information, applicant eligibility For large. requirements, funding application Hold regularly scheduled, open, deadlines, and likely amounts of public meetings, and make regular money available. http://extension.oregonstate.edu/catalogprogress reports to the city governing body.

Waterfront Revitalization for Small Cities 53 • Marketing the Waterfront Plan: of the waterfront plan and to make or in advance of it, through a formal Market the approved waterfront plan recommendations for amending the tax increment financing district. to local business, civic, and profes- plan when proposed projects became A variety of tools are available to sional organizations; to foundations unworkable. local governments for controlling that have invested in the local area in land use and development along the other ways; and to state and federal waterfront. These are discussed in agencies with programs providing Implementing Land-use detail in Part III: Revitalization Issues, funds or technical assistance to help Tools and Techniques under Land Use implement projects. Controls and Incentives and Development Control and Incentives. Land-use regulation is more often designed to prevent inappropriate Managing Waterfront development than to encourage the Acquiring Revitalization desirable kind. However, as a community seeks to implement its Necessary Parcels During plan implementation, it is vision for the waterfront, the need for of Waterfront Land important to sustain the enthusiasm regulations is an important DATE. and community involvement that consideration. There are several reasons a city was so important during the develop- Preventing residential develop- might want to acquire or control ment and adoption of the waterfront ment in an active industrial port area OFwaterfront lands. plan. could save the industries working • Land may be needed to develop One way to help achieve this is to there a lot of problems in the future. public facilities, such as a waterfront create a management team—similar Restricting the height of structures park or parking areas adjacent to the to the planning team organized to at the water's edge to preserve views waterfront. develop the plan—for waterfront and requiring dedicated public access • The city may want to control revitalization. The team's member- along the shore could enhanceOUT private development or provide ship will vary from community-to- property values on upland as well as incentives to developers by assem- community, but candidate members waterfront sites in the vicinity. bling parcels and doing some site might include the following. Also, the resultingIS increases in preparation. property tax receipts could pay for • Acquisition may be necessary to From the Public Sector: part of the "front-end" public access overcome barriers to revitalization, such as incompatibility of community • city planning, or public works improvements—either after-the-fact and property-owner goals. director, • city parks director, • local port district manager, and • local economic development information: agency director. From the Private Sector: • representatives of traditional waterfront industries (fisher, seafood processor, boatyard operator, tugboat operator, and lumber mill manager),current • recreational boating (marina owner, yacht broker,PUBLICATION boat dealer, chandler, et cetera), • key waterfront property owners, • local historical societies, • any environmentalmost or good governmentTHIS groups that were involved during the planning phase, and • a localFor banker (or other financial expert) and real-estate market expert to keep the team grounded in local economic reality. http://extension.oregonstate.edu/catalog The team might be staffed by someone from the mayor's office, or the mayor could chair the committee. It would be the team's overall respon- sibility to coordinate implementation

54 Waterfront Revitalization for Small Cities might entail purchasing an access easement across the property. Continually reassess project priorities—a need may arise that demands immediate attention to prevent the delay of other public improvement actions. For example, a restorable, but unoccupied, waterfront structure deteriorates rapidly, as Skamokawa learned when the net-rack building had to be demolished. If money had been available, and the owner had been willing to conduct repairs, that significant structure would still be there today.DATE.

OFIdentifying Project Sponsors, Funding Sources, and Techniques OUT A waterfront project gets built because, in the case of the public IS sector, someone has been given the authority, funds, and instructions to build it. In the private sector, an investor has a business opportunity, the necessary land, and the financing, and is willing to take the investment risk involved in the project. The likelihood of the construction information:of a public project can be enhanced Local governments have at their Phasing Waterfront by identifying, empowering, and disposal a number of land acquisition providing funds to the project techniques. The primary one—fee- Redevelopment sponsor as early as possible. In the case of a private project, simple acquisition—is usually the Building that first successful development action can be enhanced most expensive. However, in some waterfront project may mean several ways. cases, front-end expense may be choosing a small, easily-financed • First, you can involve waterfront recouped later through leases to currentimprovement over a more ambitious, property owners and development private tenants or throughPUBLICATION resale. dramatic, and costly one. For However, sometimes less-than-fee- interests from the beginning of the example, state funds for constructing planning process. simple interest is all that is needed to boat ramps may be readily available, • Second, you can ensure the nec- accomplish an objective. For example, while those for waterfront trails are essary public improvements proceed if access across property is needed, fully committed. If the construction the least expensive alternativemost might along with, or ahead of, the private plan calls for both types of facilities, it development schedules—sidewalks be toTHIS purchase a conservation might be well to phase them and take easement that specifies that right. or boardwalks are constructed, trees advantage of available funds. are planted, and utility lines are in The key question for local govern- Phasing access improvements to ment is, "OfFor the rights associated place. coincide with private development • Third, when the private project with ownership of real property, also can result in substantial savings. which ones are needed to achieve our is considered essential for the success If, in the foreseeable future, private of a revitalized waterfront but is goals?" Part III—Revitalizationhttp://extension.oregonstate.edu/catalog Issues, commercial development is expected Tools and Techniques; under Land judged too risky by its private adjacent to a waterfront section sponsor, the public sector might Acquisition helps answer this ques- presently inaccessible to the public, tion. share in the project's risks (and requiring access as a development rewards). permit condition becomes feasible. Gaining access now on the same site

Waterfront Revitalization for Small Cities 55 DATE. OF

OUT IS Finding funding sources for Tracking the changing availability Marketing waterfront projects requires some of funds and criteria for eligible skills, but mostly persistence. The projects warrants the attention of a the Waterfront Plan skills—identifying funding agencies key individual on the community If the waterfront plan is to be and foundations, and writing waterfront revitalization manage- implemented, the management team grants—can be learned. Municipal ment team. Thatinformation: individual should needs to take on another vital task— librarians and the staffs of state keep all the project sponsors apprised marketing. Selling the plan to the planning assistance agencies and of new or changing funding private development sector is planning associations can provide situations affecting their projects. particularly crucial if new economic bibliographic and technical assistance activity on the waterfront is planned. and training programs. A slide show created as part of the waterfront plan can be effective for a team member giving a lunch talk to current the local Kiwanis, Propeller Club, or PUBLICATION Chamber of Commerce. Landowners and real estate developers, bankers, architects, engineers and other professionals whose support is crucial to the waterfront plan will be most members of these civic organizations. THIS Opportunities to show the community's plans to the staff of public agencies also should not be For overlooked—personnel in coastal management, outdoor recreation, state lands, and other agencies can be http://extension.oregonstate.edu/cataloghelpful in locating funding sources, pointing out regulatory pitfalls, or suggesting alternative approaches to environmental problems.

56 Waterfront Revitalization for Small Cities The waterfront plan and its through definable historic epochs. detailed design scheme At any point in time, the water- reflect the community's front, together with its associated vision for the future of its infrastructure, services a particular urban shoreline. That vision is based set of activities that tend to experi- upon the best information available ence long-run stability—break-bulk to the planning team at the time, and transportation and heavy waterfront upon the team's best efforts to use the industry, fishing fleet moorage, and information to predict future trends fish processing for example. But these affecting development on the water- activities can be disrupted by forces front. However, rarely do events and beyond the control of the local opportunities conform closely to community, such as changes in the predictions! scale and technology of ocean ship- Interest rates rise and fall; water- ping brought about by the containeri- front property changes hands; new zation of cargo, or passage of new fishing fleets start to crowd the port's laws affectingDATE. fisheries conservation docks; the railroad that was and management. Local cities and operational now is abandoned; the ports can do little, if anything, to old cannery scheduled for prevent these changes. Instead, they rehabilitation is determined to be OFare forced to adapt to them and to structurally unsound and will need to innovate. be removed; a major industrial In an article in a 1986 issue of the Revisiting employer closes its doors. Perhaps a Coastal Management Journal (see local politician fails to get re-elected Appendix C—References and Resources), the Waterfront and the waterfront plan goesOUT to the Sarah Richardson suggests the notion back burner, displaced by another is- of a "product life cycle" could be Plan,. . The sue of immediate civic concern. Any applied to waterfronts as they enter one of these eventsIS can affect the the transition from one epoch to the Ongoing Process implementation of the waterfront plan next. (See Figure 5) The "product" and necessitate either plan revisions produced by the waterfront and its or changes in the pace or phasing of infrastructure is no longer in de- planned public improvements. mand, so the product must change, or Some of the events affecting the the enterprise supplying it must die. waterfront are the result of purely Communities, like businesses, need local decisions,information: but many are not. to think like entrepreneurs if they are There are long-run shifts in global, to survive such changes and find new national, and regional economic forces niches for their waterfronts. affecting waterfront industries, result- The majority of the communities ing in waterfront communities going we visited in this guide have taken.

currentFigur e5 PUBLICATIONStaj ;es of the Classical Product Life Cycle

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Waterfront Revitalization for Small Cities 57 on faith, the idea that the next There are some strategies a com- unforeseen opportunity may dictate a "product" being produced by their munity can use to minimize the risk plan change, but consider the effect waterfronts will be recreation and of being overwhelmed by events these changes will have on the tourism. In most cases, there is clear beyond their control and to keep plan community's overall goals and evidence they are right. Tourism implementation on track: objectives. indicators, demographics and observ- • Develop and nurture an in-for- • Evaluate and reassess the com- able behavior attest to the popularity mation network. Keep track of trends munity's goals and objectives. of waterfronts on the part of out-ofin areas important to your waterfront Changes in the external social and town visitors. economy. For example, tourism economic environments may have However, there are no guarantees numbers and demo-graphics, port made some of them unattainable. that, over the long run, tourism will and marine industry markets, and • Communicate your findings to remain the central product of the activity in competing centers. elected officials. Reassessments of the revitahzed waterfront—any more • Regularly review plan assump- waterfront plan, the assumptions it than did riverfront passenger ferries tions. Economic, demographic, and rests on, and the goals it supports early in the century, or break-bulk other trends could diverge from those need a public airing. cargoes until 25 years ago. Highways assumed in the plan. DATE. and bridges assured the demise of the • Propose and evaluate necessary former, containers the latter. plan changes. Averting a major road- block, or taking advantage of an OF

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58 Waterfront Revitalization for Small Cities his part of the guidebook pro- Choosing and Using Consultants vides detailed information on • suggests reasons for hiring a several important waterfront consultant, T revitalization topics. • describes the preparation needed, Waterfront Uses and Activities • tells how to locate qualified discusses information that will be consultants, especially useful as you debate and • outlines several alternative selec- decide how to allocate scarce water- tion procedures, and front space among competing uses: • gives tips for developing a good • the range of uses and activities working relationship between the found along the waterfront—indus- community and the consultant. trial, commercial, residential, parks, and recreation; and Obtaining Waterfront Development • the issues generated when uses Permits is a primer on the Federal overlap, compete for limited shore- Section 10/404DATE. permit process line, and adversely affect one an- administered by the Corps of Engi- other. neers, often the most difficult hurdle for waterfront projects to overcome. Land Use Controls and Incentives OFTopics covered include: gives details on a number of tech- • the agencies involved and their niques communities can use to direct interests, development in ways consistent with • a community planning scheme waterfront goals and plans: for getting permits, and • zoning, OUT • information on how permits are • overlay districts, processed. Revitalization • development incentives, and • design standards.IS Issues, Land Acquisition describes the tools available to local governments for Tools, and land acquisition: • Fee-simple acquisition through Techniques outright purchase, gift, or condemnation is covered, • informationinformation: on leasing or selling back to private developers, and • ways to acquire cheaper, less- than-fee-simple interest in waterfront property.

Financing Waterfront Revitalization gives information about: current• how to finance planning and PUBLICATIONdesign studies through a variety of government programs, and • how to finance actual redevelopment projects, using public monies, most public-private joint ventures, and THIS traditional commercial techniques. For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 59 The information presented in as the intended, consequences of this section will help the planning choices made by peer planning team address communities. many of the plan elements discussed in Part II—Revitalizing Your Waterfront under Stage Three— Industrial Uses Developing the Waterfront Plan. It will Waterfront Uses help the community answer such The dependence of industries on a questions as: waterfront location has changed over and Activities • What sorts of activities are the years as new manufacturing and suitable for our waterfronts? transportation technologies occur; • Which uses mix well together? where the supply of raw materials, • Which need separating from such as logs, has shifted away from each other? navigable waters; or where waste- • Can public access work on the disposal regulations no longer permit working waterfront? untreatedDATE. discharge into water bodies. We also present some of the As a consequence, many lumber experience—good and bad—the case mills, petroleum products storage study communities have gained in and distribution facilities, and some recent years as new uses and activi- OFfish processing plants have aban- ties displaced old ones on their doned their urban shoreline sites and waterfronts. As you read this section moved inland. In many smaller you will see the unintended, as well communities, it was this industrial OUT IS

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Water dependent uses remain important in many cities.

60 Waterfront Revitalization for Small Cities abandonment of the shorehne that There are other good reasons to and therefore candidates for interpre- resulted in vacant or underutilized consider carefully the needs of tive tours and signs, or passive sites and, hence, downtown water- waterfront industries. observation from on- or off-site front redevelopment opportunities. First, they form an important viewpoints. However, exceptions to general underpinning to the local economy The industrial element of a water- trends abound, and many viable because they usually export their front plan can include a number of manufacturing and wholesaling products and services beyond the goals to: industries remain on the shoreline; immediate community. • identify existing zones of water- their need for access to navigable Second, they often buy labor, front industrial activity and, if water, highways and, in some cases, services, and significant quantities of appropriate, areas for its expansion; rail lines should be taken into account materials—including fish, logs, and • depict the flow of materials and as the community considers alter- sand and gravel—locally, leading to goods to-and-from the sites—by land, native designs for waterfront strong economic ripple effects inside rail, or water—and suggest alterna- improvements. Often these industries the local community. tive routes that avoid conflict with lease land from port districts, and, Third, such firms' pasts are pedestrian, bike, and recreational- even when they don't, port officials frequently interwoven into the boat traffic;DATE. frequently champion their interests history and culture of the community. • suggest buffer areas to screen during debate over the future of the And, finally, they are intrinsically walkways and new development downtown waterfront. interesting activities to the visitor. OFfrom industrial eyesores;

I Gentrification Along the Working Waterfront

Olympia's Percival Landing, the city's visiting OUT moorage and waterfront boardwalk, is an unqualified suc-cess in attracting the public to the downtown waterfront. IS Private entrepreneurs have begun to capitalize on the popularity of the area, too. For example, new restaurants, marinas, and offices have been built adjacent to the public walkways. A private, mixed-use office building, with condominium apartments on the top floor is now under construction; and a city proposal for a pedestrian and bike trail linking Percival information: Landing with East Bay Marina is waiting in the wings. These projects have fanned a long-smoldering controversy between the city and the Port of Olympia. Because the port property sits at the north end of a peninsula which, to the south, abuts downtown, all Industrial, commercial, and recreational uses are crowded port rail and truck traffic must traverse a narrow together on the Olympia, Washington, waterfront. corridor on its way to the log yards and docks. Thus, port officials fear the very survivalcurrent of the port as a use buffer between any residential development and cargo-handling and industrial development agency is PUBLICATION port industrial areas. threatened by this gentrification of the peninsula. Ironically, the port is, in part, a victim of its own A transportation-corridor study, funded jointly by investments in leisure-serving facilities. East Bay the city and the port, is underway, and, according to Marina is a pleasure craft project constructed by the Olympia's long-rangemost planner Pete Swensson, should port in the early 1980's; and in 1985, the port paid for result in practical solutions to the conflict. constructing a popular observation tower at the north The port worries, too, that once a residential THIS end of Percival Landing, where visitors can watch community locates on the peninsula, neighborhood ships being loaded at the port's general cargo pressures on the port will increase, jeopardizing its terminal. It was almost inevitable that a constituency ability to functionFor in a highly competitive cargo- would develop in the city to link the two attractions shipping environment. Already, a well-organized with trails. Additionally, ground has been broken for neighborhood group with homes overlooking the port, an Olympic Academy on port property near the has succeeded in http://extension.oregonstate.edu/cataloglimiting filling for further industrial Marina. This facility will provide training for Olympic development along the West Bay shoreline. This area, coaches and be a home for Olympic memorabilia, historically home to lumber and other wood-products displays, and other public attractions—adding yet firms, is an area the port has eyed for future expan- another tourism draw on the port peninsula. sion. At a minimum, the port would like to see a land

Waterfront Revitalization for Small Cities 61 enjoy waterfront views, providing opportunities for other businesses to profit from this drawing power. Second, restaurants extend the times of the day people visit the waterfront, thereby increasing levels of public safety and decreasing opportunities for vandalism. (However, the same cannot be said for taverns that do not serve meals. In Port Angeles, the city gave up replacing vandalized trees on part of a city block housing taverns. This action ended the problem.) Third, when outside decks and terracesDATE. are provided, eating becomes a festive affair, spilling over into adjacent public places where people can enjoy simple seafood served from OFa take-out window. Fourth, a restaurant can be an "anchor tenant" in a mixed-use • draw attention to opportunities restaurants served the needs of the project housing other retail establish- for interpretation and public access. local work force—stevedores, fisher- ments and offices. By consciously exploring choices men, or merchant mariners—beforeOUT But the waterfront siting of for the industrial future of the beginning to cater to a more upscale restaurants requires forethought. If waterfront, community decision- market of tourists and visitors. Res- placed over water, a restaurant is makers minimize the risk of having taurants have severalIS characteristics likely to run afoul of state or federal unintended impacts unconsciously that make them obvious candidates resource agencies' policies; if placed make the choices for them. for successful waterfront commercial immediately adjacent to "working projects. waterfront" enterprises such as First, they are "generators"—they boatyards or commercial docks, it Commercial Uses attract people to the area to relax and would likely be affected by noise, Other kinds of businesses benefit dust, paint over-spraying, or other from access to the water's edge but information:by-products of marine workplaces. do not depend on it for their eco- However, restaurants do work well nomic survival. Businesses such as with pleasure-craft marinas. restaurants, hotels, offices, and mixed-use developments gain higher Retail revenues from the waterfront ameni- Whether or not retail activity ties but could function perfectly well occurs in a revitalized waterfront on upland parcels. To the extent views and, if it does, the kinds of activity of the water or public access to thecurrent found there will depend upon local water are provided,PUBLICATION these uses can be market factors and the location of considered water-enjoyment uses. competing retail centers. Many smaller communities have Specialty marine retail establish- found that new commercial developments selling to the boating public ment can bring new life to their will be drawn to a large marina, or waterfronts. We foundmost restaurants, fishing-tackle and bait shops may retailTHIS shops, offices, yacht brokerages, locate at the end of a fishing pier or and marinas either separately or in where recreational fishers launch or mixed-use developments in most of moor their boats. our case studyFor waterfronts. However, souvenir shops and stores selling kites, tee-shirts, ice Restaurants http://extension.oregonstate.edu/catalogcream, marine art work, and bric-a- In a recent issue of Waterfront brac are likely to be found only where World about the roles restaurants play pedestrian densities are high enough in waterfront revitalization, author to support them—along the bayfronts Ruth Thaler noted, "Before there of towns at the upper limits of our were popular waterfronts, there were "smaller community" definition, or waterfront restaurants." Often, these

62 Waterfront Revitalization for Small Cities be made a permit condition. Mixed- use project developers have experienced great difficulty in attracting water-dependent users to rent space in these developments.

Residential Uses Housing presents obvious opportunities for waterfront developers, but some pitfalls for waterfront revitalization. Unless designed and sited with great care, housing can conflict with public-access needs and those of marineDATE. industries for safety and security. Clearly defined boundaries between public accessways and OFprivate property are necessary to protect the interests of each set of users. (See the public-access sidebar on page 67.) Such boundaries are enhanced by buffers of vegetation, OUT grade separation, or deep setbacks, which are far more effective than the otherwise inevitable "KEEP OUT!" or Private waterfront development occurred after public improvements were madeIS at Percival "PRIVATE PROPERTY—NO TRES- Landing in Olympia, Washington. PASSING!" signs posted along disputed borders. where the main downtown shopping kinds of services, such as law offices, Housing introduced into formerly street is close to and easily connected may locate there. industrial or commercial areas will to the waterfront. Office users are generally good establish new neighborhoods with neighbors for traditional marine influence that will be felt in future Offices industries and areinformation: tolerant of—and land-use decisions affecting the new Waterfront offices are likely to be likely to use—adjacent public access- residents' well-being. Again, buffers occupied by two types of tenants: ways and parks. Offices also mix well separating residential and industrial marine businesses, such as small craft with retail activities, particularly uses through vegetative screening or moorage, boat sales, naval where they occupy the upper floors compatible land uses (for example: architecture, or marine surveying; of mixed-use projects. parks and commercial developments) and "footloose" consulting, or other can minimize present and future service businesses attracted to the Mixed-Use Projects conflicts. amenity of the site. The latter includecurrent Restaurants and small retail stores Consideration might be given to architects, landscapePUBLICATION architects, mix well on the ground floor of allowing only rental units in new specialty publishers, trade associa- waterfront buildings, while upper- residential developments where tions, and realtors specializing in floor office space can be rented. conflicts with existing or expanding waterfront sales. Providing public access around the industry are anticipated. Renters When the waterfront is immedi- water perimeter of the structure can would be less likely than owner- ately adjacent to downtown,most other occupants to mount organized THIS I AdaptiveFor Reuse On the Waterfront Communities can encourage private developers to dining with expansive views of the Columbia River adapt and re-use historically interesting but obsolete estuary and the bridge linking Oregon and Washing- waterfront structureshttp://extension.oregonstate.edu/catalog that would otherwise fall into ton. Gift shops are clustered inside this "mini-mall," disrepair and be lost forever. and easy proximity to the downtown core and nearby For example, Astoria's Pier 11, formerly used for parking provide easy access to both the local lunch grain storage and loading, has been converted into a crowd and visiting tourists. retail and restaurant complex offering over-water

Waterfront Revitalization for Small Cities 63 opposition to the occasional—and almost inevitable—industrial nui- sances of noise, glare, and dust. For housing to enhance, rather than detract from, successful waterfront revitalization, the following guidelines are recommended: • For new housing developments, or increased permitted density of housing on land adjacent to the waterfront, linear public access, parallel to and contiguous with the waterfront, should be required. • Housing over water—either on pilings or in floating structures— should be discouraged; state and DATE. federal resource and coastal management agencies generally will object to such projects. Edmonds the whole length of the picnic and play areas; and land- • Encourage marine-related retail downtown beach was designated a OFscaped knolls for kite-flying are some and commercial uses on the ground marine-conservation area where city options available to waterfront floor of housing developments to park rangers conduct educational communities. The same criteria listed reinforce the public character and beach walks for local school districts. for public accessways are applicable marine orientation of the waterfront Also, on one side of the state ferry to waterfront parks, however some where market conditions permit it. terminal, the water beyondOUT the low additional caveats are suggested: tide mark is an underwater park used • Visually connect the park to year-round by scuba-diving enthusi- adjacent walkways and public streets Waterfront Parks asts from the wholeIS region. to enhance the perception of safety; However, not many urban water- avoid high plantings, walls, or other Waterfront parks can be designed fronts lend themselves to beach and visual barriers that create unsafe to take advantage of the special underwater sports activities; more blind spots. passive and active recreational commonly, fills, bulkheads, and • Separate people from their cars opportunities available nowhere else seawalls line the water's edge, by locating parking areas well in the community. leaving no beach even at low water removed from the water's edge; In Port Angeles, a small pocket levels. Underinformation: these circumstances (Edmonds cleaned out a beach area— beach park was created adjacent to boardwalks on pilings; hard-surfaced the scene of drug-dealing and party- the new city pier development. In paths, protected by rip-rap; grassy ing—by using this strategy in rede- signing a section of beachfront at Marina Park). • Encourage activities in and adjacent to the park that extend the times people are using the facility current legitimately—active use discourages PUBLICATION vandalism. • The water's edge is where the action is—keep it open to everyone, not just special user groups such as boaters, fishers, or horseshoe players. most • Public recreational small-craft THIS moorage (both transient and permanent) and launching facilities (for car- top and trailered boats) should be For designed to share the water's edge with walkers, joggers, bikers, and others who just want to sit and watch http://extension.oregonstate.edu/catalog"people messing around in boats."

Revitalization efforts in Kirkland, Washington, had to contend with existing residences.

64 Waterfront Revitalization for Small Cities Traffic Circulation Traffic, particularly through traffic, can confound plans to make the waterfront safe and accessible to the public. Often the path of least resistance—the edge of the river or bay—was taken over by a railroad or state highway cutting off communities' downtown areas from the water. Now, one of the biggest challenges confronting these communities is developing safe, inviting, pedestrian links to re-unite the downtown with the waterfront. Forging such links can be difficult DATE. and expensive where frequent train or heavy truck traffic parallels the shore. Diverting this traffic away from the waterfront is possible in OF only a limited number of cases, and wide grade-crossings can be daunting to children, the elderly, and the handicapped, and footbridges are rarely inviting. In fact, footbridges are OUT often visually intrusive elements where views are critical. However, even if it's not an easy IS problem to solve, addressing it in the waterfront plan puts the issue on the community's agenda and leads to discussion about solutions over the long haul. These might include: • Generating alternative design solutions to pierce the barrier— information: however costly they might appear • Conducting a survey of local industries to determine current highway and rail use for freight shipments • Arranging for a new traffic count on highways leading through, or near the waterfront current • Building an argumentPUBLICATION and a constituency for state transportation funding to reroute a waterfront highway or mitigate the problem in sections which create the worst barriers most • ApproachingTHIS the railroad to determine if alternative routings are possible or whether the line might be abandoned inFor the foreseeable future Another type of barrier to pedestrian circulation between the downtown core and waterfronthttp://extension.oregonstate.edu/catalog is caused by unappealing land-uses and structures—industrial yards and buildings that either have been abandoned or are used for low cost storage purposes; automotive garages

Waterfront Revitalization for Small Cities 65 and shops that have usurped long stretches of sidewalks through curb- cuts and poor parking practices; sterile parking lots, poor street lighting, and chain link fences. None of these barriers creates an environment friendly to pedestrians. Yet it is those very pedestrians who will create opportunities for higher commercial uses along these city blocks—if they can be induced to walk through them. The waterfront plan should identify "opportunity blocks," where potential is highest for pedestrian movement between the downtown DATE. core and prime waterfront amenities. • Landowners and tenants occupying parcels on these blocks can then be approached and made part of OF the waterfront planning effort. • Joint public-private actions can be identified to ameliorate urban design deficiencies in these blocks. • A real-estate market consultant OUT could enumerate commercial uses and tenants for sizing potential redevelopment projects. IS • The city, the port, and other economic development agencies could Parking for cars has been allowed where the space would better be devoted to picnic tables. help identify alternative sites for uses that might be displaced by new for space with local fishermen's Public Access commercial development. pickups and seafood processors' • They also could help acquire delivery trucks, and local merchants The cornerstone of successful public land for parks, sidewalk- bemoan the lackinformation: of off-street parking. waterfront revitalization is attractive, widening, or other pedestrian amen- It is the bayfront's economic vitality safe, and inviting public access. ity. and visual diversity that is to blame. Without access, the downtown At this point in the waterfront Dead waterfronts don't have parking water's edge will remain cut off, revitalization process, the value of problems! private, and lacking in the single good graphic communication is hard The following are some tips for ingredient absolutely necessary for to overstate. It is here that the urban designing waterfront parking solutions: revitalization—people, lots of people. design consultant performs a unique • Avoid locating parking in or on Additionally, without an access service—drawing the results of a currentstructures over water, except where plan for the whole waterfront, access variety of alternativePUBLICATION design strategies necessary for the smooth functioning that is gained will likely be haphaz- for these critical connections between of a marine business. This is premium ard, unconnected, and underutilized. downtown and the waterfront. waterfront space that should be Consequently, commercial develop- People have difficulty imagining the considered for higher uses (water- ment which would have benefited transformations that can be accom- dependent industry, mixed-use from well-conceived public access plished by plantingmost street trees, commercial developments, public might not be built or, if built, would wideningTHIS sidewalks, and altering or boardwalks, street-end viewpoints, be less commercially successful. In restoring building facades. and so on). Defining Plan Elements under Stage • Locate parking lots near the ends Three—Developing the Waterfront Plan ParkingFor of the downtown waterfront, perhaps in Part II—Revitalizing Your Water- in conjunction with an "anchor" ac- front, we described public access as Parking is closely related to tivity, such as a marina or yacht club; having three dimensions: physical, circulation problems.http://extension.oregonstate.edu/catalog However, a or use a landscaped parking lot as a visual and interpretive. The best parking problem may be a symptom land-use buffer between industrial access has these characteristics: of successful revitalization! and commercial sections of the • It invites public use by virtue of For example, on Newport's waterfront. its unambiguously public character. bayfront, parking space is at a • It permits the public to walk, jog, premium, tourists' vehicles compete and bike along the water's edge.

66 Waterfront Revitalization for Small Cities • It respects people's basic needs by providing comfortable street furniture; clean, safe restrooms; and shelter from rain. • It sparks visitors' curiosity through interpretive markers and signs explaining the waterfront's role in history, its contemporary industries, natural environment and wildlife, and other intrinsically interesting stories. • By its design, it guards the privacy and security of adjacent residences, as well as hazardous waterfrontDATE. industrial sites. • It respects the needs of children, the elderly, and the disabled. When public access is obtained OFthrough easements across private property, it should be recorded in the property deeds of each parcel crossed by the accessway. Doing this will while minimizing conflicts among • It establishes or preserves visual ensure easements are not "lost" when types of users. connections to the waterfront from parcels change hands. This point is • It allows boaters access to and upland sites and streets. OUT particularly important in cases where from the water and a secure place to • It provides a variety of pedes- the access is not continuous and leads temporarily leave their boats. trian experiences by using changes in to a dead-end shoreline viewpoint. • It connects the downtown to the width, elevation, orientation,IS plant- waterfront at points along its whole ings, and surface treatment. length.

Examples of Good and Poor Access Olympia's Percival Landing provides generous, information:the area might be a park; on the other hand, the same unambiguous public access to the water and along the lawn abuts buildings that look suspiciously like private shoreline of Budd Inlet. Boaters can reach downtown residences. on foot from visiting-vessel moorage at the foot of Overcoming this initial ambiguity, the visitor walks Water Street. An existing supermarket at the south further north over the grass to where a sign in front of a end of the Landing opened a delicatessen and placed condominium apartment complex proclaims the area to outside dining tables adjacent to the boardwalk be a "private beach." Since neither the upland boundary shortly after it opened. Overall sales rose to three nor the seaward extent of this allegedly private beach is times the market management's projectionscurrent which had marked, the visitor feels like a trespasser on private been made before PUBLICATIONthe Landing was constructed! property, rather than a welcome guest at a public beach! A new restaurant also recently opened at the north end of the Landing and another is planned to begin construction soon. While, nearby, existing small-craft moorage has been rebuiltmost and a new private marina constructed. ATHIS visitor to the Edmonds waterfront faces an inviting park-like entrance to Olympic Beach which leads, straightFor ahead, to a public fishing pier built just outside the port's marina breakwater. Interpretive information and public art enrich the visitor's experience to this well-designedhttp://extension.oregonstate.edu/catalog facility. However, turning right—to the north—the same visitor faces a psychologically more difficult environment to deal with. On a green, lawn-like area behind a In areas of mixed public and private development, public access low concrete seawall are some picnic tables suggesting must be obvious and make visitors feel welcome. Otherwise the waterfront will not be used to its full potential.

Waterfront Revitalization for Small Cities 67 Viewpoints clear." Along the waterfront, it is a component of public access—"inter- and View Corridors pretative" access that helps people Where physical public access is understand and appreciate the precluded for safety or security history, culture, work, and environ- considerations, or where existing land ment of the place. In this sense, uses and ownership patterns simply interpretation helps foster a goal block off the waterfront, viewpoints common to most revitalization and view corridors can be exploited efforts—improved public access. to gain visual access to the water. Waterfront interpretation serves Viewpoints offer an opportunity to other functions as well. It can help link the waterfront to other parts of accomplish management goals— the town and to reinforce the land- orienting people to the waterfront, scape relationships between land and pointing them in the right direction, water. Seeing the water from many and promoting stewardship of places in the community strengthens facilitiesDATE. and natural resources. the special sense of place created by a Interpretation can help create a sense waterfront. The location of the of place and roots—commodities in viewpoint could be quite removed OFscarce supply in our modern, foot- from the water's edge—a bluff-top loose society. It also helps attract several blocks away, a viewing tower visitors, and is an amenity for on the landward side of a port's communities wanting to attract marine cargo terminal, or a street-end Rarely can people walk around active cargo private commercial development. park on a nearby hillside. areas, hut that doesn't mean they can't see Interpretation is an educational View corridors are a useful tool for what is going on. Jumbo periscopesOUT at the Port service—it helps visitors get to know allowing visitors to see the water of Seattle allow people to observe shipping the community, and the community activities without interruping the work or to get to know itself better. through developments. Where a endangering themselves. street runs parallel to the waterfront, IS A variety of techniques are used to but is separated from it by interven- interpret waterfront stories. ing blocks, view corridors can be • Architecture and art are a subtle Who will tell the stories? That is way to communicate stories. used to open up an otherwise opaque where interpretation enters the public wall of structures. This technique is • Interpretative centers—indoor or access picture. outdoor—employ a variety of media particularly effective for preserving What is interpretation and how views from streets running along such as exhibits, demonstrations, and does it fit into revitalization plans? audiovisual materials. hillsides overlooking the waterfront. Very simply,information: interpretation means "to explain, to give meaning to, to make Waterfront Interpretation When well-told, there are many stories of the waterfront that would regale visitor and local resident alike. Small city waterfronts often have acurrent colorful and excitingPUBLICATION past, mostly hidden beneath the old pilings, thick coats of paint, and modern facades on old waterfront buildings—or simply dimmed by the passage of time. However, stories mostabout today's waterfrontTHIS are equally interesting— the workers, sights, sounds, and smells that imbue the place with vitality, energy,For and interest. People wonder what kind of fishing vessel that is, or where this ship is from and what it carries. http://extension.oregonstate.edu/catalog And there is yet another type of waterfront story to be told, that of its other visitors—seabirds, waterfowl, Visitors can observe activities related to the working waterfront from a viewing tower at herons, marine mammals, otters, Percival Landing in Olympia, Washington. An interpretive marker shows the names of peaks ubiquitous gulls. in the Olympic Mountains, which are visible on clear days.

68 Waterfront Revitalization for Small Cities • Trails along developed and natural waterfronts are popular, with historical, environmental, or other markers and displays. • Brochures point the way along self-guided walks. • In other cases, interpreters—live story tellers—using living history and drama to bring characters alive along with eras—can lend special character to the waterfront. Whatever the medium for communication, there are a few important principles. • First, keep interpretation simple and focused. DATE. • Be accurate (even if dramatic). • Finally, with respect to your audience, know who they are, and get them involved and thinking— the OF best interpretation stimulates people to learn more. Developing an interpretive component of the waterfront's public access Kiosks at Percival Landing in Olympia, Washington, provide photos and text explaining the plan should be a conscious part of the history of the waterfront. OUT revitalization process. Ideas can be generated through community workshops, waterfront walking tours Put the interpretationIS plan in Professional help is often available focused on identifying interpretive writing—include sections on goals, on a volunteer or service basis— opportunities, and historical research. principal themes and story lines, university, college or community It is a great way to involve people of techniques and sites, and how the college art, graphics, and recreation all ages and backgrounds. plan is to be implemented. departments—or, if the community has resources, interpretation consultants are available for hire. They can use their training and information:environmental communication skills to turn community ideas into professional, long-lasting exhibits and displays. For more details on interpretive planning for small community waterfronts, get a copy of Waterfront current Interpretation: A Community Planning PUBLICATION Guide (see Appendix C—References and Resources). most THIS For http://extension.oregonstate.edu/catalog

Historical and cultural interpretation are the primary focus of the Columbia River Maritine Museum in Astoria, Oregon.

Waterfront Revitalization for Small Cities 69 Historic and Cultural Resources Waterfronts are rich in history. They are the places where communities began—a boat landing, fish dock, or sawmill was often the center of activity around which the town grew. Often, some vestiges of these early structures remain, though they may be buried under paving, obscured by a new wall covering, or surrounded by later structural improvements. Local historical societies will have old photographs or drawings of the DATE. waterfront showing the location and configuration of original structures and places (these will have come to light during the inventory phase of OF the revitalization planning process). The waterfront plan can be used to identify opportunities for their restoration, marking, and interpretation. Vessels have an even more colorful and authentic historical place on the OUT waterfront. Several communities have made a restored ship the focus The fishermen's memorial on the waterfront in Eureka, California, highlights an important local of their revitalized waterfronts. For industry. IS example, Reedsport's Hero Foundation has restored the Antarctic v, \A Art on the Waterfront exploration and research vessel of the same name. The Hero is now docked J Sculpture, fountains, murals, tile at the city's principal waterfront mosaics, mechanical assemblages, redevelopment site and the \\\ i \ and other works of environmental art Foundation is trying to raise money information:fit well with and enrich waterfront for an Antarctic "exploritorium" to redevelopment projects. serve as a major visitor attraction. Funds can be earmarked for such In Aberdeen, Washington, partly . \ purposes, particularly in connection as a result of funding from 2$ \y^\ with public improvements where, in Washington's Centennial Com- some states, a small percentage of the mission, a replica of an early British construction budget is required to be expedition sailing ship skippered by set aside for the acquisition of public Captain Gray (for whom Grays current art. Art will work its magic best when Harbor is named) PUBLICATIONhas been launched. v V /mm it is considered an intrinsic part of the ^ It is the focal point of the waterfront revitalization effort rather community's revitalization effort. 1 U\_^>S-fc* than a decorative element to be \ ■ incorporated as an afterthought, or worse, an obligation imposed by a most distant bureaucracy! THIS Public art can be used to celebrate a legendary local event or character; ^ graphically interpret local history, or For industry; memorialize a tragedy; or, simply delight the observer. http://extension.oregonstate.edu/cataloglit ^ ^

70 Waterfront Revitalization for Small Cities Special Events • The Greater Astoria Crab Feed and Seafood Festival started several and Festivals years ago, and now draws 25,000 Above all else, putting vitality people every year. back into the waterfront means • Vintage and modern tugboats getting people to go there and use it. race on Budd Inlet during "Harbor Festivals, concerts, tugboat races, Days" to the thrill of spectators fairs with a water theme, guided crowding Olympia's Percival beach walks and seafood festivals are Landing. some events smaller communities • In Edmonds, a series of beach- have used to achieve this goal. front events are held each fall as part Achieving the goal of bringing a of National Coasts Week celebration. festival to the waterfront is as Such events serve to imprint the important a success as developing a waterfront's special sense of place in physical project—it's a success the the heartsDATE. and minds of resident and community can build on. The city pier is the site of a public celebration visitor alike. in Port Angeles. But these events need places to happen and people to make them happen. During the development of OFthe waterfront plan is the time to start thinking about possible events, places to hold them, and ways to get them organized. OUT IS

information:

A maritime artifact has been transformed intocurrent a sculptural centerpiece at Astoria's Columbia River MaritimePUBLICATION Museum. most THIS For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Smalt Cities 71 Effective controls on land use public access should be, what kinds and development are essential of uses would be permitted in the if design ideas developed in project, and how much alteration the waterfront plan are to be would be permitted to existing realized. Inappropriately-located structures housing those uses. activities and poorly designed In another area, only water- structures can quickly compromise dependent industrial uses would be the economic functioning and au- permitted. Finally, in a third area, thentic character of the waterfront uses that promote the enjoyment of district. The tools and incentives the waterfront—restaurants, Land Use and discussed in this section are those boutiques, maritime museums— most commonly available to commu- while not strictly dependent on a nities to control waterfront develop- waterfront location, might be Development ment. However, the state-to-state conditionally permitted subject to variation in land-use laws and the public access requirements. Controls degree of acceptance of land-use The overlayDATE. districting approach controls from community-to-commu- has the advantage of retaining and Incentives nity will affect the applicability of detailed downtown zoning these measures. standards—including covering OFoverall density limits, building setbacks, on-site parking, and Zoning business-sign size and design— while, along the length of the The most common method for downtown shoreline, making fine regulating land use is zoning.OUT Dis- policy distinctions to accomplish the tricts are defined and mapped, and goals laid out in the waterfront plan. land uses that are permitted, condi- Any conflicts between the overlay tionally permitted,IS or prohibited in district ordinance and underlying each district are listed. zoning would usually be decided in Zoning is a tool firmly grounded favor of the more restrictive of the two. in North American land-use law, enabled by state legislation, and implemented through municipal Shoreline Management ordinances and official zoning maps. The courts haveinformation: held zoning to be a Districts legitimate exercise of policing power, Following passage of the Federal except when an unreasonable restric- Coastal Zone Management Act in tion on private-property use is shown 1972, many coastal and Great Lakes to have occurred without "just states enacted statutes mandating compensation" as required by the that cities and counties develop local U.S. Constitution's fifth amendment. coastal programs for regulating coastal development. In some cases, current these local coastal programs have PUBLICATIONOverlay Districting been effective instruments for enunciating urban waterfront goals, Another approach is used when policies, and regulations. In other refinements are needed to a small cases, the conservation of rural area of the underlying zoning scheme shorelines commanded much without disturbing its more broadly- most attention, while the urban shoreline applicable provisions. Overlay dis- THIS was given only cursory treatment. tricting does this by superimpos- The geographic extent of each ing special policies and standards for state's coastal management program developments in waterfront areas. For varies. Some states measure inland For example, mixed-use boundaries in hundreds of feet from a developments in existing over-the- high-water mark; while in others, water structures might be permitted http://extension.oregonstate.edu/catalogwhole coastal counties lie within the in one section of waterfront, subject management zone. to provision of public access. The Development projects proposed in overlay district ordinance would be the coastal zone are reviewed against used to spell out, in detail, what the the local coastal program in effect. dimensions and character of that Given that local programs often carry

72 Waterfront Revitalization for Small Cities the weight of state law and coastal permitted to locate where otherwise beds of navigable waters. The project development permits issued by local prohibited. is held hostage by the objecting government are reviewed by the • Incorporating design standards agency until a management plan for state, the local program is a potent relating to height, bulk, setback, and the "special" land and water area is mechanism for regulating urban view corridors; together with a thrashed out. waterfront development. However, description of the way exceptions will A special-area management plan is to be effective, most local coastal be handled—for example, relaxing not to be entered into lightly; the programs need to be updated and height restrictions where no upland process is complex, expensive, and improved once the waterfront plan views are affected. often protracted; and it contains no has been approved. • Specifying how mixed-use guarantee of eventual resolution. Washington State's Department of projects will be reviewed by public Agency staff changes can occur in Ecology has produced a guide for officials and what criteria—minimum midstream; perceived multiparty local governments. Urban Waterfront standards, documentation of public agreements can unravel; decisions Policy Analysis, which offers benefit, et cetera—will be applied in made by regional staffs of federal recommendations, based on case the review. agencies can be over-ruled by offi- studies, for improving the cials at nationalDATE. headquarters; and, effectiveness of local plans for the finally, litigation, or threats of urban waterfront, including: Special Area litigation, can prolong the plan's • Developing more specific regula- gestation period. tions for water-dependent, water- Management Plans OFWhy do a special area manage- related, non-water-dependent, or Where use and control of the water ment plan, then? water-enjoyment use areas, and the surface, water column, and beds of Experience suggests that develop- types of sites where such uses are harbors are a major issue, or where ments proposed in an area that has a permitted over water, shoreline edge, estuarine resources are at risk from special area management plan—and or upland lot. development; state and federalOUT agen- which conform with that plan's • Developing a comprehensive cies may suggest or require a special policies—have an easier passage access plan and the means to imple- area-management plan be drafted through environmental permit ment its requirements—dedicated and adopted by all ISaffected local reviews than those proposed outside on-site access, donation to an off-site governments and regulatory agencies. the planning area. However, it may common-access point, or cash in lieu This process usually is initiated by be easier for smaller communities to of access. parties to a deadlocked project permit simply keep development out of • Restricting the circumstances or lease. The reason for the deadlock contentious areas, than to engage in a under which non-water-dependent is usually a difference of values protracted and risky planning effort. uses providing public access are placed on wetlands,information: an estuary, or the

PUBLICATIONcurrent most THIS For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 73 Historical Districts Where the historically important part of a community's waterfront is well-defined, creating a historic district can be an effective way to ensure historic structures receive the protection they deserve. Much like an overlay zone, the historic district is used to place additional restrictions on the kinds of existing-structure alterations and the character of new development that will be permitted there. If carefully crafted, regulations can retain the historic character of the district's DATE. buildings, while allowing new uses in remodeled interior spaces. Although some tax incentives once available to owners of National OF Historic Register buildings have been repealed or changed, the designation still protects structures from out-of- character, non-historic alterations. Historic district in Eureka, California,OUT preserves the architectural character of homes. Development Incentives similar details, and possess a similar review board can be effective in Regulation alone will not achieve a patina of age. IS preventing a serious development community's waterfront redevelop- Redevelopment envisioned in the blunder. (There probably will be ment goals—public actions creating waterfront plan will almost certainly more agreement on what is a bad positive incentives for private invest- include restoration and new construc- design, than on what is good!) ment in the area also will be necessary. tion. Often original uses for the Standards can address the basic These actions might take the form waterfront structures no longer exist, character of developments, including of street and sidewalk reconstruction, some are now vacant shells, while oth- • The overall dimensions of build- street-tree planting, or public parking ers are being information:recycled for new ings: height, bulk, setbacks from the improvements by the city's public uses. Some were demolished, and some street or from public accessways, works department. It might be neces- burned, leaving holes (and development width of view corridors from the sary for the city to acquire and opportunities) on the waterfront. public street to the water. demolish derelict waterfront structures The shape this development takes • Materials and colors to maintain and build a new public pier and board- and how well the changes and addi- the existing character of the area. walk before a private developer will tions fit into the existing urban fabric • Street facades: fenestration (win- risk capital in a waterfront restaurant will be of concern to a community that dow size, repetition, and details) to on the site. Expanding the port's currentvalues its historic architectural and avoid monotonous blank walls, and marina and addingPUBLICATION visitor amenities urban design heritage. However, minimizing the elevation of the main such as showers, laundromat, or fuel reaching agreement on how to floor above street level to maintain dock could result in an increased respond to these concerns will be pedestrian contact with the building's number of boaters visiting downtown, more difficult. activity. thus expanding the marketplace for Written design standards for the • Retention of historic building merchants and privatemost redevelopers. development, and a review of pro forms in new development and re- THIS posed projects by a community design construction. This allows for contem- Design Standards porary construction and materials, Much ofFor a waterfront's character is JBI....^;.... :...-...„ while maintaining links to the past set by the older buildings lining the through roof lines (gables, overhangs, water's edge and those forming the or hips), false-fronts, fenestration, or first block back from the shoreline. other architectural characteristics. http://extension.oregonstate.edu/catalogWhere there are a number of signifi- They set a tone because there is a r recognizable architectural pattern to c; i;,:7or) ...... cant historic structures in the water- all the buildings when a district was front district, you might consider in- built up over a short period. They are r,- rrr -rTrr n- r-r/Trr- _ corporating or adapting Historic of similar scale and materials, have fir-p/'f r?Ti*T cr 7"T r-'r-vir- Register standards for new structures as well.

74 Waterfront Revitalization for Small Cities Implementing the waterfront land. The most costly technique is plan often hinges on the ability using tax, grant, donated funds, or a of local government to assemble combination of the three for outright the needed parcels of land— purchase at market value. land that may be needed for public Donations of public or private land facilities or to control the kinds of to local government or "bargain private development on the water- sales" at lower than market value are front. Whatever the reason, there are some other means of receiving fee- a variety of land acquisition tools or simple title. In such cases, private techniques available to communities. donors usually reap tax or other Acquisition of fee-simple title is benefits, such as easements or Land the most common technique, but stipulated-use provisions on the part usually the most expensive. Also, due of the seller. Acquisition in part to the escalating cost of water- Another means of obtaining fee- front property and because commu- simple title to waterfront property is Techniques nities find they don't need complete through condemnation—usingDATE. the control of the property to achieve eminent domain power of government their purposes, less-than-fee-simple to take private land for public use. In techniques, primarily easements, are larger cities, redevelopment authori- growing in popularity. Each OFties use this as a major tool to create technique is discussed below. parcels of land for new development. Using a process known as "quick take," a redevelopment authority can Acquiring gain immediate possession, with final disposition coming later through Fee-Simple InterestOUT negotiation or court-determined When land is acquired fee-simple, compensation. The advantage is the the entire bundle ofIS rights associated city or redevelopment authority is able with absolute ownership of property to negotiate an agreement with a de- is transferred from one property veloper and commit to a delivery date. owner to another. The fee title holder In small cities, local officials often controls the use of the land (subject to are hesitant to use their con- governmental restrictions) and is demnation powers to take private responsible for managing it. Thus, the land for public development, fearing full cost of acquisitioninformation: includes both that townspeople will be alienated in the initial purchase price and subse- the process. Nevertheless, if fee- quent long-term costs of maintaining simple title is needed to accomplish and managing the property. community goals, and other methods There are a variety of ways to of acquiring title are not feasible, it acquire fee-simple title to waterfront may be the only option. PUBLICATIONcurrent most THIS For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 75 Public retention of fee-simple title For the private developer, long- at an attractive price increases to waterfront property usually is term ground leases can increase net leverage with the developer for needed only when the proposed return on investments through providing for amenities, such as public development requires public use and improved financing terms, reductions access and special design features. occupation of the waterfront—for in initial capital outlay and risk The principle is that the public example, parks and public moorages. exposure, and tax advantages. The benefits gained and tax revenues If the purpose or goal of acquiring developer can deduct the full amount generated by the project will cover title is to assemble parcels to promote of the lease payment from income the difference between the public's private redevelopment, several of the taxes, whereas if the land had been land-purchase and selling price. techniques listed below may be used purchased outright, only the interest to recoup the public costs of acquisi- would be deductible. With a sub- Land Banking tion and management. ordination clause in the lease, the Land banking allows a city to advantages are even greater. acquire and assemble waterfront land Leaseback Public facilities constructed or needed for development until a Fee-simple purchase and leaseback rehabilitated by the city as part of the suitable investor is identified. While is a common technique that project may also benefit private large-scaleDATE. land banking usually is encourages private businesses and developers. For example, a public prohibitively expensive, small-scale redevelopment, while retaining dock would attract potential programs—often labeled "advance control over how redevelopment is customers for visitor-oriented acquisition programs"—are accomplished. Under this procedure, businesses. The disadvantage to the OFsometimes used as a hedge against developer is that leasing land, rather local government purchases the inflation in land values or as a way to property and rehabilitates existing than purchasing it, may cause obtain optimal locations for future piers, pilings, or other structures, or short-term cash-flow problems. public facilities. builds new ones. The property is then leased back to private interests under OUT a standard long-term ground-lease agreement. The lease normally provides for a minimum base IS payment, plus a percentage of the income generated by the project. If the project does well, the city shares in the income and recovers its -ty*^ costs. In addition, such ground leases can often be subordinated; that is, the city can execute a mortgage of its information: land as security for a development loan made to the lessee. Leaseback arrangements benefit both private and public interests. For local governments, part of the costs of acquisition and redevelopment can be reclaimed through lease revenues, and part or all of property current maintenance is assumedPUBLICATION by private, tax-paying businesses. If the private development fails, unless lease Land Writedowns Land Exchange default provisions are worded such Land writedowns are commonly Land exchanges or swaps are that only rent payments are lost until used by local government to especially useful in reorganizing income increases or mostsome other event stimulate private investment in urban fragmented ownership patterns. The occurs,THIS the city could lose its land. renewal. The procedure involves idea is to trade public for private Local government can obtain local government purchase of property so both parties can con- additional public benefits by rundown property, clearance of solidate land into more usable parcels. attaching Forrestrictions or covenants to dilapidated structures, and resale of Goals of land exchange vary. For the deed, including public access, the land to private developers at less example, local governments may setbacks, design and architectural than the public's cost of purchase and want to assemble a parcel of land for standards, and landscaping.http://extension.oregonstate.edu/catalog improvement. a waterfront park. Or they may wish For developers, this reduces the amount of capital needed to finance redevelopment, thus decreasing their equity requirement. For the city, sale

76 Waterfront Revitalization for Small Cities to assemble land to promote private redevelopment authority, or a • The specific property rights investment in waterfront redevelop- conservation organization. When needed to carry out the community's ment, or simply to protect waterfront easements are properly drawn up, goals and objectives. What rights are amenities, such as natural resources signed, and recorded, the owner and needed to preserve development or views. The goals of private inter- future owners can no longer exercise options or to ensure that develop- ests may be to get land closer to the rights given up. All other rights, ment of the property is consistent transportation links or other features however, are retained by the owner. with the plan? If active public occu- attractive for development. Easements may be placed on pation and use is needed, or if the Additional public benefits may property voluntarily by the owner, community is trying to assemble a result from land swaps if local who may take such action for a fee, parcel of land to stimulate private government attaches deed for local tax breaks, or some other investment in redevelopment, fee- restrictions or covenants that help incentive. simple rights will probably be achieve other waterfront goals. Easements, the principal alterna- needed. If only public amenities need tive to fee-simple acquisition, have to be preserved, less-than-fee-simple Options-to-Purchase inherent limitations. Negotiations rights may be adequate. An intermediate step between with landowners are often time- • CompatibilityDATE. between outright purchase and having no consuming and complicated. Land- proposed land uses and between interest at all in property, is to secure owners may have difficulty landowners, the city, and other an option-to-purchase. For a fee or understanding what rights they are partners of the acquisition. Are some other consideration, the giving up. It also is difficult to OFprivate landowner's plans consistent prospective buyer secures the right to determine the cost of the property with those of the city? All parties purchase a piece of property for a rights that are being transferred from must be in accord for certain tech- specified price, for a specified period the landowner to the easement holder. niques to work. of time. This is a particularly useful Property rights left with the • Property maintenance and tool where financing has yet to be landowner can also be a problem,OUT if management goals. Does the city obtained, but some right or interest in in the future those rights are used in want, or can it afford to, maintain or the property needs to be demonstrated. ways that interfere with the original manage the property and its im- purpose behind the ISeasement. provements over the long term? Finally, although easements do • The long-term costs of each away with local government's need alternative. If fee-simple Acquiring to manage the land, the easement acquisition is necessary, can part of Less-Than-Fee-Simple nevertheless must be enforced. the costs associated with purchase be Interest Responsibilities for enforcement also defrayed by leasing, resale, or other should be made clear in the easement. technique? Often, the only public interest in a information:All land acquisition techniques particular parcel of waterfront land have limitations. The chief one for may be public amenities, such as the Selecting the Best Land fee-simple acquisition is the cost of right of physical or visual access to Acquisition Technique acquiring and managing the land, water, or the preservation of natural especially if the land is to remain in environmental values. In such cases, What is the best tool or technique strict public use. Less-than-fee-simple less-than-fee-simple acquisition may for local government to use to acquire techniques also have their limitations, be in order. waterfront land for redevelopment? though in many small cities, the use The principal tool involved is the currentA thorough understanding of the of conservation easements may be conservation easement.PUBLICATION When an following factors can serve as a basic more acceptable to local taxpayers easement is placed on land, the guide in choosing an acquisition and landowners than outright owner relinquishes certain rights strategy. purchase or use of eminent-domain which then are transferred to a authority. recipient, such as the city,most a public THIS For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 77 Okay, so you skipped construction also are available straight to this section through section 306A. The latter of the guidebook. That's program specifically targets public- not unwise, since the access development, the redevelop- tasks of getting started and development of deteriorating waterfronts; ing a waterfront plan require funding preservation of historical and cultural long before a single pile gets driven. values, and features; and restoration This section examines the question, of natural resources. "How do we pay for revitalization?" Virtually every small community It is organized into two parts: we studied received state coastal • Financing Planning and Design management agency grants to under- Studies: How to fund the first three take waterfront planning studies, Financing stages of revitalizing your water- acquire land, or actually construct front —Stage One—Getting Started, projects. Riverfront and lakefront Waterfront Stage Two—Surveying the Waterfront, communities outside state coastal and Stage Three—Developing the zones areDATE. ineligible for CZM grants. Revitalization Waterfront Plan. • Financing Waterfront Develop- Community Development ment: Paying for the pilings, planks, Agencies and public accessways that must be OF built if Stage Four—Implementing the Most states have a community Waterfront Plan, is to be realized. development or planning agency that provides planning information and Appendix B—Sources of Financial technical assistance to local Assistance provides a compendium of governments. federal funding sources—organizedOUT Helping smaller communities by program name, administering locate and apply for state and federal agency, and program category. grants and loans is among these IS agencies' functions. As federal policy changes rapidly in these days of Financing Planning deficit-consciousness, state and Design Studies community development agency staff maintain current information Waterfront revitalization is a plan- on which programs are funded and ning subject that has captured the which are not, on current grant attention of agenciesinformation: with quite eligibility criteria, and application divergent interests, including coastal- procedures. zone management, community development, outdoor recreation, Outdoor Recreation Agencies economic development, ports and Parks, boating facihties, fishing harbors, historic preservation, and piers, waterfront trails, viewing natural resource management. towers, and other structures often are current the critical public contributions to a Coastal Zone Management successful, revitalized waterfront. PUBLICATION(CZM) Programs In some instances outdoor recrea- Coastal management agencies tion funds are available for planning have a stake in waterfront revital- studies. A state agency or an inter- ization wherever marine or Great agency committee usually serves as a most Lakes waters are involved. In fact, clearinghouse for a variety of federal THIS coastal states are urged to assist local and state outdoor recreation funding governments in the redevelopment of sources. That agency often will have deteriorated urban waterfronts and authority to award, on a competitive For ports through federal coastal zone basis, grants and loans to public management funding. In addition to entities (including port districts) for waterfront planning grants under planning, design, engineering, and http://extension.oregonstate.edu/catalogSection 306 of the Federal Act, funds construction of waterfront recreation for land acquisition and low-cost facihties.

78 Waterfront Revitalization for Small Cities Economic Development commercial, rather than purely rec- Historic Preservation Sources reational, benefits can be documented. Agencies However, federal policy making in Funding for the preparation of Both federal and state programs this area is volatile and the situation historic preservation plans—conduct- provide grants and loans to public could change quickly. The District ing architectural surveys, assessing and private entities for the creation of Engineer of the U.S. Army Corps of structural conditions, and developing employment or diversifying local Engineers (COE) District Offices will detailed cost estimates—is available economies. Waterfront communities continue to be informed on current from the National Trust for Historic have received a share of these funds funding policies. Preservation, the National for planning port infrastructure Securing federal funding for Endowment for the Arts, state development and for promoting harbor improvements is a political historic preservation offices, and tourism. For example: the City of Port process and is likely to take several private foundations. Angeles used a Federal Economic years to accomplish. The COE Development Administration (EDA) conducts "reconnaissance" and Natural Resource grant to conduct a downtown "feasibility" studies for proposed Management Agencies planning study. Results of the study federal harbor projects when so In someDATE. states special funds may included a recommendation for directed by Congress. be available from the natural resource construction of a city pier which This two-staged approach is used agency responsible for managing became the centerpiece of the to weed out projects for a number of submerged lands. For example, in community's waterfront. reasons, including those with little or OFWashington, the Department of A state program for depressed no national benefit, or which are Natural Resources administers the coastal areas in Washington State technically infeasible for engineering Aquatic Lands Enhancement Account funded an economic development or other reasons. Reconnaissance (ALEA), a fund supported by fees plan for Wahkiakum County that studies require no local matching levied on the use of state submerged included recommendations for the funds, while feasibility studiesOUT (aquatic) lands. This program was restoration of Skamokawa's river- require 50 percent local participation established in 1984 to fund projects front and historic district. in the project. that enhance public access to beaches, IS restore degraded marine environments, or enhance the public benefits derived from submerged lands. Preparation of Port Angeles' harborwide plan was partly supported by an ALEA grant. information: Financing Waterfront Development Control, ownership, and financing of waterfront development projects may be purely public, partly public and partly private, or entirely private. current For example, a marina developed PUBLICATION and operated by a port district and built over leased public submerged lands is in purely public ownership and control. The same marina, if Port and Harbor Projects that pass the technical- leased to a private operator to most feasibility and national economic Development Agencies manage, would fall into the middle benefit tests may be recommended UntilTHIS very recently, the Federal category, where some control of the for inclusion in the Federal budget Government has been the major facility has been relinquished by the through a water resources appropria- player in port and harbor planning port district. tions bill. The local port authority is and development;For but changes in the Another marina—developed and probably the best local entity to deal level of national funding available, operated by a private entity, but built with the COE when harbor improve- and in the criteria for allocating over public submerged lands—still http://extension.oregonstate.edu/catalogments are envisioned in a revitaliza- funds, have drastically reduced the retains some public character through tion program. degree of Federal Government a lease agreement with the public participation in local harbor lands agency. Finally, a private improvements. Funds are more likely upland development built entirely on to flow towards projects where private land would fall into the purely private category.

Waterfront Revitalization for Small Cities 79 These distinctions are important an LID, property owners agree to • Municipal Bonds: Municipal when considering how waterfront assess themselves to pay for such bonds are of three types—general development is to be financed: improvements, and thus can obligation, revenue, and the LID • Public financing techniques are collectively purchase public bond discussed above—and each has available for public improvements improvements none of them would the advantage of being tax-exempt. and other developments serving a provide individually. Tax-exempt refers to the interest purely public purpose. To create an LID, a special district income earned by the bondholder. • Commercial financing is is created, boundaries are described, Interest income from these bonds is generally used for funding private the intended im-provements are exempt from federal (and in some developments. specified, project costs are estimated, cases, state) income tax; and, as a • Public/private joint ventures and property owners' assessments result, interest rates paid on tax- are ways for public and private are calculated. Typically, when exempt bonds are lower than those entities to collaborate on a particular business-district improvements are to paid on commercial loans. As a development. be the object of the LID, individual consequence, municipal bonds are a cheaper source of capital than com- Public Financing mercialDATE. financing for qualifying Public facilities can be financed developments. through a variety of public The bond's quality, reflecting the mechanisms, including taxes, local OFdegree of risk to the bondholder and improvement districts (LIDs), the interest rate the issuer must pay municipal (general governmental) in the bond market, is highest for bonds, industrial development general-obligation bonds and lowest (private activity) bonds, loans, loan for LIDs. High quality bonds have the guarantees, and outright grants. lowest risk and lowest interest rates. In some cases they may be fi- OUT A general-obligation bond pledges nanced partly, or in whole, from the full faith and credit of the munici- private funds paid into a common pality and uses property-tax receipts public improvements fund by IS to pay debt service to the bondholder. foundations, corporations, and Depending on the state and the waterfront developers. State constitu- circumstances, issuance of a general tions and legislatures use enabling obligation bond requires a vote of the statutes to authorize the purposes people—usually a significant these municipal funds may be used majority (for example, 60 percent)— for—the use of public monies for any in the taxing district issuing the purpose other than public is gener- information:bonds. There are exceptions when ally prohibited. obligation bonds may be issued on • Taxes: The city government may the authority of the municipal authorize, through the normal governing body without a vote of the budgeting process, a general-fund people. expenditure to pay for a public A revenue bond, unlike a general- improvement on the waterfront. obligation bond, is backed by sources However, when the cost of of revenue other than taxes. These improvement would extinguish thecurrent sources may be special revenue from city's "rainy day"PUBLICATION reserves, or signifi- the specific facility being financed, or cantly increase the general tax general nontax revenues of the mu- burden, other, more politically nicipality. Revenue bonds do not acceptable, sources should be consid- assessments are based on some require voter authorization in most ered. equitable measure of business states. • Local Improvementmost Districts activity—number of employees, State constitutional and (LIDs):THIS Though not available in all square footage or front footage of statutory limits may apply to the states, LIDs, like tax increment property, or assessed value of the maximum indebtedness that may be financing, are useful public financing property. The city constructs the incurred through general obligation tools for improvementsFor that benefit a improvements using its short-term bonds. Revenue bond sales are small, well-defined district. For borrowing capacity, then issues an limited by the ability of the munici- example, widening sidewalks; plant- LID bond for the resulting debt. Each pality to repay debt from general or ing trees; and installinghttp://extension.oregonstate.edu/catalog street furni- owner is assessed his or her share of special revenue sources, as evidenced ture, banners, or special markers the costs, and the receipts are used to by a municipal financial statement or benefit businesses relying on pedes- retire the bonds. "pro-forma" financial analysis of the trian traffic for their trade. Through enterprise being financed.

SO Waterfront Revitalization for Small Cities Recent (1986) tax-code amend- • Grants, Loans, and Loan Guar- ments placed new, severe limits on antees: Private waterfront develop- the purposes for which municipal ment projects may be eligible for a bonds may be issued. Generally, if number of federal and state loan, and more than 10 percent of the bond loan guarantee programs, subject to proceeds are to be used by private various restrictions according to (nongovernmental) trade or business, purpose and location. and if more than 10 percent of the Small Business Administration repayment of the principal or interest (SBA) programs make direct loans for is derived from similar, private buildings—SBA 504—and provide sources, the IRS will rule that the loan guarantees for expansions— bond does not qualify for tax exemp- SBA 7(a)—to qualifying businesses. tion. Similar state-administered programs Important exceptions to this are available in many states, and have "private activity bond" rule apply to been used for waterfront revitaliza- government-owned, common-use tion purposes.DATE. Once a beneficent wharves and docks, including source of urban and community municipally owned and operated development financial aid, federal marinas. Marinas built by a port or government programs have shrunk city and leased to a private operator OFin recent years. would not qualify for tax exempt One of the grant programs remain- financing. ing is the Community Development Another special type of bond, the Block Grant Program (CDBG), a industrial revenue bond (IRB), highly-competitive grant program received similar congressional OUT with annual funding cycles. Under scrutiny in the 1986 Tax Reform Act. this program, federal funds up to Because of frequent misuse and loss $500,000 are granted to eligible small of federal tax revenues, the tax- • The courts are continuallyIS inter- cities and non-urban counties for a exempt IRB now is limited to financ- preting IRS regulations and the wide variety of housing, public ing publicly owned docks, wharves, federal tax code as they pertain to facility, and economic development hoists, and so on. An exception for municipal bonds. activities. Projects principally must using small-issue IRBs for financing • There are several alternative ap- benefit lower income households; the acquisition of land and buildings proaches to public financing; choos- prevent or eliminate slums or blight; for the use of private manufacturers ing the best for your community or, in instances when no other expired on December 31,1989. project warrantsinformation: the attention of an resources are available, resolve Tax-increment financing is a expert. urgent public health and safety special kind of municipal bond, • Finally, the terms and timing of a needs. Eligible economic develop- available in some states, that pledges bond issue can affect the interest rates ment projects include: the anticipated increase (increment) the municipality must pay the • Rehabilitation of privately in tax receipts from community bondholder. owned buildings redevelopment projects to repay bonds issued for those projects. In other words, as a community current project—for example:PUBLICATION street and sidewalk improvements—is completed, the market value of the private properties affected by the improvements will rise, assessed values will be adjusted mostupwards, and tax receiptsTHIS will climb. The tax increment over the life of the bond is estimated, thus giving a basis for setting the sizeFor of the bond issue. In some states, tax increment financing runs afoul of the state constitution. http://extension.oregonstate.edu/catalog There are several reasons it is prudent to seek the advice of bond counsel before committing to a particular form of public financing for waterfront improvements.

Waterfront Revitalization for Small Cities 81 • Eligible infrastructure improve- revitalization must be a public- ments in support of local economic private joint venture if it is to development succeed: a waterfront without some • Rehabilitation, preservation, and kind of commercial activity would restoration of historic properties, likely be sterile; a waterfront without whether publicly or privately owned public access and amenities would be • Acquisition, construction, recon- crass and inhospitable. struction, or installation of commer- Public-private partnerships take cial or other real property, equip- many forms, but generally, the value ment, or improvements by recipients, of the partnership lies in the comple- sub-recipients, or private, for-profit mentary strengths and abilities of businesses each sector in the development • Provision of assistance to pri- process. vate, for-profit businesses, including, The public sector (municipal but not limited to: grants, loans, loan government) has powers unavailable guarantees, interest supplements, to the privateDATE. entrepreneur: technical assistance, and other forms • The power to condemn land for of support, for any other activity public purposes (eminent domain) necessary to carry out an economic • The power to raise low-cost development project except when it OFcapital through taxes and bonds involves buildings for the general • The power to regulate land use conduct of government. (zoning). In risky market environments, The private sector has certain such public subsidies as loans, loan Public-Private Joint Ventures attributes and freedoms not found in guarantees, or outright grants can As a result of diminishingOUT federal the public sector: make the difference between go and appropriations for urban develop- • Access to capital for purely no-go for private waterfront projects. ment grants, loans, and loan private purposes Private lenders are more secure about guarantees duringIS the 1980's, cities • Ability to transact business a project when the developer's equity have turned to the private sector for speedily and in confidence is matched or exceeded by a govern- partners to share in the costs and • Entrepreneurial motivation— ment grant, or where the risk of benefits of waterfront redevelopment. personal financial reward for finan- default on a loan is obviated by a In a broad sense, waterfront cial risk. guarantee. information:

Failed Public-Private Joint Ventures restaurant, or fully lease the upper floor of the I building; and at time of writing this guidebook, the project was in financial difficulty. The Landing Project, Port Angeles: The City of Port Angeles will not give permission Built over state submerged lands where lease terms (required by the loan agreement with the city) for the are restricted to 30 years, this proposedcurrent mixed-use, partners to take out another loan, and the bank that restaurant-retailPUBLICATION project proved difficult to finance handled the original loan is foreclosing on the prop- through conventional commercial arrangements. erty. The city has few options available to recoup its The City of Port Angeles was able to secure a loan—it can buy the property at the foreclosure sale Federal Community Development Block Grant of or lose its equity in the project entirely—and there is $400,000 throughmost the State Department of Community little support from the community for putting any Development (DCD). The grant was then used to more public money into the project. THISmake a subordinated loan to the project developers. Whereas The Landing in Port Angeles was built, Port Angeles Waterfront Associates. partly leased and then failed; a hotel-convention Together with $400,000 of private equity, the block center complex in the Eureka, California, downtown grant enabledFor the developer to secure a conventional waterfront never was constructed. The joint venture real estate loan of $1.89 million from a commercial scheme envisioned the city building a waterfront bank—even thoughhttp://extension.oregonstate.edu/catalog the submerged-land lease term drive, two plazas, and a convention center; and the was shorter than the minimum usually required: five- private developer was to have built an eight-story fourths the length of the mortgage. hotel. With the help of a $2 million loan from the City Unfortunately, the private developer partnership of Eureka, the developer built the foundation and was unable to find someone to lease an anchor went into bankruptcy. The project was scrapped.

82 Waterfront Revitalization for Small Cities Municipal government (including In our case-study communities we Long-term mortgage financing is port districts) can use its powers to found only two examples of formal taken out when the building is ready overcome obstacles insurmountable pubhc-private joint ventures, and for occupancy. The mortgage will to the private developer. both were financial failures. probably be refinanced periodically It can assemble fragmented land Experience suggests that smaller as the property appreciates to enable holdings into parcels of developable municipahties limit equity involvement the owner to take out equity. size and shape and then lease or sell in private projects to those where the Financing for special facihties and them to the private sector for speci- following conditions are met: equipment—restaurant kitchens, fied kinds of development (see Land • Market conditions affecting the marinas, sports facilities, and so Acquisition in Part III—Revitalization project's revenue predictions are on—requires separate financing Issues, Tools and Techniques). verified. An independent review by a since these items are difficult to MunicipaUties can make necessary knowledgeable real-estate financial dispose of should a loan default. public improvements—demohtion expert concurs with the developer's Lenders do not like to take inordi- and site clearance, street repairs, claims. nate risks and will require that installation of utilities—to provide an • The developer has a proven the developer have some personal environment conducive to private track record in similar developments capital asDATE. equity in the project— development. in comparable waterfront markets. usually 25 percent of the project In unusually risky markets, where • The stumbling block to private cost—to share in the project's risk a "seed" project is needed to start capital investment is an institutional with the lender. revitalization, the city can be an one (for example, public lands are OFThe lender also will want to be equity partner in the development, involved) and not the economics of assured the project will generate sharing in the risks and rewards the project, and it can be removed sufficient cash flow to pay operating through use of invested local, state, or only by public funding. costs, depreciation, taxes, and debt federal funds. • It is clearly in the public interest service on invested capital. The On the other hand, the private that development go forward.OUT With- project proponent will be required to sector can develop waterfront prop- out it, the other elements of the provide documentation to this effect erties for any revenue-producing use waterfront plan would likely fail. through a "pro-forma" balance sheet. for which a market exists and which IS The pro-forma will show the project's is allowed by zoning. Within limits, Commercial Financing projected financial performance of private developers can be required to Private developers seeking com- over the life of the mortgage (with build public amenities into their mercial financing to build projects in more detailed analysis for the first private projects as a condition for the waterfront will turn to financial critical years as rental space is leased getting a permit. But where the costs institutions such as commercial or development units are sold). of the amenities become overly banks, savings and loan associations, The lender also will look carefully burdensome, developers will balk or or insurance companies.information: Commercial at the financial track record of the sue, and the project may not get built. lenders are involved in a project in developer. Consummating pubhc-private three ways: short term construction Waterfront projects often entail joint ventures requires a high degree financing; long-term mortgage higher construction, engineering and of financial and legal sophistication. financing; and equipment financing. permitting costs than those There are usually sound reasons the Construction financing pays the developed on upland sites; and if private sector would choose not to go the bills of the contractor and archi- there is not already successful it alone on some waterfront projects: tect as they come due during the development of a comparable type the municipahty needs to know whatcurrent construction phase. nearby, the risks are perceived to be these reasons are. PUBLICATION even higher. As a result, developers' equity requirements may be greater on the waterfront, or some degree of public participation in the project most might be required. THIS For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 83 Rarely does a community revi- Reasons for Hiring a Consultant— talize its waterfront without Communities typically hire consult- using consulting services at ants because: some stage of the process. • they need specialized expertise, One community might employ a con- • they need work accomplished in sultant to design or run its public- a short time, or involvement process, while another • they need objectivity or some might need an economist to do a other intangible only a consultant can marketing study. Yet another may provide. employ urban designers to translate the concepts developed by a water- Preparing to Hire a Consultant—In front citizen committee into site- advance of hiring a consultant, specific architectural plans and communities should: Choosing engineering specifications. And still • decide on the role of the consult- another may hire a firm to lead them ant, and Using all the way through the planning, • prepareDATE. a scope-of-work for the design, and construction process. consultant, Consultants Whatever the situation or need at • develop criteria for selecting a the waterfront, consultants often can consultant, and Effectively play a key role. Their broad range of OF• appoint a selection committee. experience and specialized expertise make them valuable members of the Locating Qualified Consultants— waterfront planning team. Communities need to: See Part II—Revitalizing Your • do research and Waterfront, Stage One—GettingOUT Started, • advertise widely to make sure all Organizing the Planning Team for more qualified consultants know about information on the kinds of their project. professional expertiseIS useful in waterfront planning. Selecting a Consultant—A commu- The following is a summary of the nity can go about the actual selection issues and topics dealt with in this process in a number of ways. Typical section, each of which is discussed selection processes include: more fully later. • a request for statements of qualifications and interest, information: • a request for full proposals from a more limited number of firms, • interviews of several firms, • selection of a single firm, and • detailed work and fee negotiations.

Working With Consultants—There current are a number of tips that can help PUBLICATION make the community-consultant working relationship a good one. Examples are: • clear communication through a single contact, most • regular meetings with the plan- THIS ning team, and • periodic evaluation of progress. For http://extension.oregonstate.edu/catalog

84 Waterfront Revitalization for Small Cities Reasons for Specifying the scope-of-work be realistic with Role of the Consultant respect to the budget available— Hiring a Consultant you cannot expect a comprehensive An important task for the "Why use a consultant?" is the first waterfront plan for $5,000! community is to decide what role it The scope-of-work serves several question most communities ask. wants the consultant to play. Since While there may be many reasons, purposes. First, it helps the com- funding is often a major limitation, munity articulate, in writing, exactly they can probably be boiled down to especially in small communities, it is three: what it needs to have done. This important to think through the entire point cannot be overemphasized. • There is a need for specialized planning and design process to sort Second, in simplified form, the knowledge, skills, or experience. out what the community can do with Many small communities do not have scope-of-work provides the basis for its own staff and volunteers. Limited a widely-advertised Request for a professional planner, or design and funds for purchasing outside services engineering professionals on staff, or Qualifications (RFQ). RFQ's are used then can be directed to those tasks when a project is a relatively large even available on a volunteer basis. requiring specialized knowledge and And, even those that do may benefit one or when the community wants to skills not otherwise available. be sure that all qualified firms know from the special expertise or broad DATE. about the project. Interested firms experience a consultant, or team of Preparing a Scope-of-work consultants, can bring to bear on a respond with a Statement of Once a community has reached the Qualifications (SOQ). Figure 6 gives complex area such as the waterfront. stage where consulting services are OF • There is a need to expand capa- an example of the information a com- required, a "scope-of-work" with bility on a "crash" or one-time basis. munity should request in their RFQ . specific objectives needs to be Sometimes the need is immediate and Finally, the scope-of-work prepared. The scope-of-work should it would take too long to recruit, hire provides focus for consultants invited be as simple as possible, but clearly to prepare full proposals. At the and train staff. However, adding a communicate the goals, expectations, full-proposal stage, there should be staff member is always an option and OUT and final product desired. Pictures, enough detail in the scope-of-work to should be examined carefully in view sketches and maps may be useful. of long-term costs. Other alternatives allow comparison of different sub- If the community does not have missions on an equal basis. Figure 7 might be to obtain assistance from a IS the technical expertise available to outlines the general categories of county or regional planning agency, develop the scope-of-work, they or to share a planner with another information communities should might consider hiring a consultant to community. include in the Request for Proposals help with this initial task. Whatever (RFP). A pre-proposal meeting for all • There is a need for some intan- the case, it is important that the gible such as objectivity or leverage. interested consultants also may be Sometimes a consultant can help the community take a fresh look at an old information: problem and foster a solution that an insider could not. While political sensitivity is important, a consultant is less likely to be constrained by local politics than are staff or elected officials. Outside experts can sometimes provide the credibility needed to market ideas to private investors current or government fundingPUBLICATION agencies.

Preparing to Hire a Consultant most TasksTHIS involved in getting ready to hire a consultant are deciding what needs to be Fordone, preparing a scope- of-work, developing selection criteria, and appointing a selectionhttp://extension.oregonstate.edu/catalog committee.

Waterfront Revitalization for Small Cities 85 Figure 6 The RFQ should include an outline of the proposed project, the scope-of- Information To Be Included work to be performed by the consultant, and the time frame. The name, In a Request for Qualifications address, and phone number of the local contact person also should be listed. (RFQ) The statement of quahfications 3. Identification of the person(s) and interest (SOQ) submitted by on the firm's team available to each consultant should include: perform the work, and their 1. A statement of the part(s) of work qualifications and experience. the firm is qualified to perform. 4. A confirmation of the firm's 2. The firm's experience in the last ability to perform the work 10 years on similar work. within the time span indicated. DATE. OF

OUT Figure 7 The RFP should include: • Task Definition: specific tasks Information To Be Included 1. The purpose of the project. and their component parts. In a Request for Proposals 2. Background leadingIS up to this • Schedule and Products: timing (RFP) project or project phase. of major steps in project, citizen and planning team meetings, 3. A detailed scope-of-work the products, and target dates for consultant will be expected each. to perform. • Team and Organization: 4. Desired products. key members and their 5. Desired schedule.information: responsibihties. 6. Approximate budget available. • Capabilities and Experience: relevant firm and individual 7. Criteria for selecting a consultant. experience, with references. 8. Elements to be contained in pro- • Cost: staff rates and hours posals submitted by consultants: by individual. • General Approach: general 9. Local contact person, submis- philosophy and methodology sion deadline, proposal length currentfor the project. PUBLICATION requirements. most THIS For http://extension.oregonstate.edu/catalog

86 Waterfront Revitalization for Small Cities useful, eliminating many separate should be the person who will be the inquiries and putting qualified firms community's liaison with the on more equal footing at the beginning. consultant throughout the project (for example, the city manager or Developing Selection Criteria planner). This person most likely will Criteria for selecting a consultant be the local leader of the waterfront should be established before the RFP planning team (See Part II— is issued. Criteria should relate to the Revitalizing Your Waterfront, Stage proposed scope-of-work, the One—Getting Started, Organizing the qualifications desired, and Planning Team). Others in the performance standards to be met. By community, such as the city engineer clearly defining the services to be or parks director, who will work with furnished, the community can the consultant also should be included. accurately judge who is best If the waterfront revitalization equipped to do the job. Often a rating project is being undertaken in system is established, with cooperationDATE. with a port or other appropriately weighted criteria. special district, a liaison person from Examples of general criteria for each group should be included. selection are: Volunteers—such as a local architect • Professional and ethical reputa- When negotiating, we keep the OFor engineer, a community develop- tion as evidenced from inquiries with option open to go to the next firm if ment specialist from a state agency, previous clients and other references. we do not agree on fees, or other or an extension specialist—with • Professional qualifications and features of the work." special expertise but no conflict of experience of the planners, engineers, Consultants agree. A director of interest, might also be included. It and architects that make up the ports and ocean engineeringOUT for a also may be a good idea to include a project team. large firm put it this way, "Price is representative from the agency • Demonstrated knowledge of always a factor in reaching an agree- providing grant funds for the project. applicable codes, government regula- ment with a designIS professional, but Three to five members is optimum. tions, and permit procedures. introducing it into the selection While the names, affiliations, and • Demonstrated experience in the process before a well-designed scope- professional background of selection type of work to be undertaken. of-work is agreed upon will reduce committee members may be • Ability to work with the public creativity, lead to a more adversarial provided to consultants, contact with and build consensus. relationship, and likely result in an the selection committee should be • Past performance with respect to inferior product at higher cost." through a single person. innovation, quality, costs, deadlines, Nevertheless,information: it is advisable to let contract performance, community potential consultants know approxi- relationships and sensitivity, and mately how much money is expected Locating Qualified follow-through. to be available for the job. This will Consultants • Location of the firm and its help them prepare realistic, decision makers. comparable proposals, while Often, a difficult aspect of hiring a • Necessary financial and business understanding price itself is not one consultant is making initial contact resources to accept assignment and of the selection criteria. with people who may be qualified. provide continuing services. currentIn some states, using price as a Simply asking around can be very Another importantPUBLICATION issue, for both basis for selection is actually illegal. effective. Other communities, local the community and prospective For projects receiving federal fund- ports, and government agencies often consultants, is whether selection will ing, the Brooks Act—which prohibits will informally share their opinion of be based on price (fee) as well as price-based selection for professional firms they have worked with or qualifications? services—may apply. mention firms that have a good Those with long experiencemost reputation. contractingTHIS for consulting services Appointing the In many areas, there are local uniformly recommend selection Selection Committee directories of professional planners, based on qualifications, with price The makeup of the selection architects, landscape architects, negotiated later.For A Corps of Engi- committee is an important engineers, and economists who neers division engineer says, 'The consideration. Three or more provide consulting services; but there Corps of Engineershttp://extension.oregonstate.edu/catalog gets higher individuals should be chosen to is probably no single place to find all quality service and in the long-run, evaluate proposals, interview firms, the specialties you are interested in. better projects by selecting consult- and choose or recommend a winner. There are other ways to locate ants by quality first and then One of the committee members qualified firms. For example, most negotiating contract agreement. firms regularly peruse major newspapers and professional and business

Waterfront Revitalization for Small Cities 87 publications for Requests for containing a general description of Three-Step Process Qualifications and Proposals. An the proposed project—to all qualified example of the latter, is the Daily firms. Figure 6 is a sample of informa- A slight variation of this procedure Journal of Commerce in Portland, tion that should be included in an is a three-step process, used by the Oregon. Also, many consultants RFQ. Corps of Engineers and other federal specializing in waterfront work 2. After qualifications are reviewed agencies. The first step is a request for advertise in national magazines, such and references checked, detailed SOQ's, submitted on U.S. Govern- as Waterfront World. technical proposals are requested ment Standard Forms SF 254 (general Another excellent source of from the top 5 to 10 firms, based on a qualifications). For the top two-to- consulting firms in your area are more detailed scope-of-work and five firms, this is followed by either a national professional organizations other information. Figure 7 is a written proposal on SF 255 (specific and their local chapters. These sample of the information that should project qualifications) or an groups, some of which are listed in be included in an RFP. A pre-pro- interview. Finally, the top firm is Appendix C—References and Resources posal meeting might also be held. selected for contract negotiations. maintain membership lists and may 3. Submitted proposals are studied These standard forms are available provide referral services. and evaluated against pre- from anyDATE. federal agency, are easily determined criteria, and the number prepared by the consultant, and easy of firms (two to four) reduced for to evaluate. Communities may use Selecting a Consultant individual interviews. Each firm also them as is or as a guide for may be given information on what is OFpreparation of their own Requests for The process of selecting a consult- to be presented at the interview. Qualifications and Proposals. ant is a very important matter—the 4. Based on the interviews, and the choice can make or break the determination of which firm's Two-Envelope System community's waterfront revitaliza- approach, staff, and background best A variation of either of the above tion effort. The right consultant is fits the needs; the top firmOUT is selected selection processes is what is known worth much more than the fee for negotiation of a final scope-of- as the "two-envelope system." Firms involved, since that cost is a small work and fees for the various services are asked to prepare and submit a percentage of the total cost for involved. For largerIS projects or those technical proposal in one envelope planning, construction, and lasting 3 months or more, a project and a cost proposal in a second. After operation. On the other hand, a schedule, or critical path diagram, the selection of one firm based on the consultant who is not right for the job should be prepared. In all cases, technical proposal and interviews, can cost time, money, and support in products, termed "deliverables" in the cost proposal is opened and the community. Several procedures, the trade, should be well defined. If negotiations begin. Cost proposals outlined below, can be followed in agreement cannot be reached, the submitted by unsuccessful firms are selecting a consultant. first consultantinformation: is dropped and a returned unopened. second one enters negotiations. Four-Step Process Sole-Source Contracting One well-accepted procedure for In some situations, a sole-source, consultant selection has four steps: noncompetitive contract may be the 1. If the project is a relatively large most efficient and logical approach one, an RFQ should be issued—either for hiring a consultant. Perhaps the by advertisement or by a letter project is a small one, and a PUBLICATIONcurrent

I The Importance of Checking Fed up with the delay, the city parks director Credentials... visited the Corps and talked to the staff handling the most project. The real problem: apparently, the consultant THISOne small community that wanted to develop a had alienated nearly all agency staff involved and plan to improve a waterfront park needed to get created confusion and delay in the process. Also, it permits for work in navigable waters. After an initial wasn't their first such experience with this particular visit to theFor project site, environmental and permitting consultant. agencies were enthusiastic about the plan, which This was a complicated project with significant emphasized conservation education. environmental impacts, so a permit was not likely to The city thenhttp://extension.oregonstate.edu/catalog hired a consultant to go through the be issued quickly in any event. However, if the city Corps of Engineers' permit process. Nearly 4 years had carefu ly checked references and spoken with elapsed with one delay after another. According to the some of the people the consultant would be working consultant, the problem was communication difficul- with, his reputation of being difficult to deal with ties among the Corps and environmental agencies. probably would have come to light.

88 Waterfront Revitalization for Small Cities consultant is available with whom for the assignment; as well as the upon, and it also is early enough to the community has had good confidence of the community and city make changes in the work program, previous experience. In such cases, management. The liaison person also if necessary, without incurring avoiding the more cumbersome should have the authority to make additional costs and time. Such competitive process might make decisions. meetings should be used to make all sense. • Following contract negotiations, major concept and design decisions. Generally, however, it is a good have a kickoff meeting with the No one likes to be surprised later, be policy to set a maximum contract consultant present to explain the uninformed about the current status amount for sole-source contracts, scope and objectives of the work to of the project, or, especially, to have perhaps $15,000-20,000. This pohcy local officials, interested community to revisit work already thought to be helps retain the community's flexibil- members, and the media. This will accompUshed. If community involve- ity to hire special expertise on short help get things off to a good start and ment is an important part of the notice, while ensuring other, larger- begin the process of community process, these progress meetings project work is procured on a involvement. might occur immediately before or competitive basis. For these larger • At the outset, give the consultant after public sessions. projects, the competitive process is in all available information on the • MakeDATE. the consultant feel like the community's best interest. project. Don't pay for "reinventing part of the community staff and a the wheel." part of the team—the result will be • Consider a variety of alterna- increased commitment and effort. Working tives. Nearly every project can be OFConsultants take pride in their work accomplished in several ways. This and want to see a successful project with Consultants might even be built into the Request as much as the community does. Selecting the right consultant is an for Proposals. • Toward the end of the consult- important first step toward a • Have at least three meetings ant's work, schedule a performance successful project, but the subsequent during the course of the contract to evaluation. Do this during the project working relationship is of equal review progress. Local membersOUT of as well. It gives you a chance to let importance. The following are the planning team and key the firm know what you like about its important tips for communities to get members of the consultingIS team approach and methodology, and the most out of the consulting team. should attend. what, if anything, is a problem. Give • Select a local planning team One of the most important meet- the consultant a copy of the member to be the contact point for ings should occur at approximately evaluation, as it will help the firm the consultant—the most likely one-fourth to one-third of the way improve weaknesses and build on candidate being the person who through the project. By this time, strengths. Place the final evaluation coordinated the selection process. basic concepts should be agreed in your consultant information file for The contact person should have future reference. enthusiasm, interest, and capability information:

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Waterfront Revitalization for Small Cities 89 Most waterfront revitaliza- interstate commerce in the past or tion plans include one or present, and those which might be more projects that require used in the future. permits from federal and Dredging and disposal, filling, state environmental agencies. The im- placement of structures in the water, portance of involving these agencies and bank stabilization are regulated throughout the planning process was in navigable waters up to the mean or stressed in Stage One—Getting Started ordinary high water (MHW or OHW) in Part II—Revitalizing Your Water- line (Figure 8). The Corps jointly front. If this has been done, and the administers this permit program with Obtaining community has incorporated envi- Section 404. ronmental concerns into its plans, the Section 404 of the Clean Water Act shoals of the permit process will be (CWA) regulates the disposal of Permits for easier to navigate. This section dredged or fill materials in "waters of addresses the following questions or the United States"—a much broader Waterfront issues, with particular emphasis on term thanDATE. the "navigable waters" of federal permits: Section 10 jurisdiction. Section 404 Development • Who regulates waterfront devel- covers traditionally navigable waters, opment, and what environmental tributary streams, and wetlands permits are required? OF(Figure 8). Section 404 wetlands are • What advance planning is areas with sufficient water to support needed to make the permit process vegetation adapted to life in work smoothly? saturated soils. They include forested • How does the permit process and shrub swamps, bogs, marshes, work, and how long will it take to get and similar areas. a permit? OUT In nonvegetated, tidally-influenced areas, such as rocky shoreline. Section IS 404 covers up to the high-tide line. Who Regulates Under the 1977 CWA amendments normal farming, forestry, and Waterfront Development? ranching activities; structure A variety of public agencies at maintenance; and other actions with each governmental level—federal, minimal adverse effects may be state, and local—have regulatory exempted from Section 404 permits. responsibilitiesinformation: for waterfront areas. Activities that may not require an The shoreline is the key boundary. individual federal permit are: placing Landward of the shoreline, regulation fills to make minor stream crossings, of development is principally the installing utility lines that cross province of city or county streams, or protecting eroding banks. government. Waterward of the In addition, no permit is required shoreUne, federal and state regulatory for work in isolated lakes and in programs predominate, though local streams with an average annual flow currentpermits also may be needed. of less than 5 cubic feet per second. If PUBLICATIONBecause local and state require- certain standard conditions are met, ments differ greatly from state to some of activities may be covered by state, the following discussion a nationwide or regional permit. focuses primarily on federal permits Although the Corps of Engineers and environmental requirements. jointly administers this program with most Section 10, the Environmental THIS Protection Agency reviews and must Federal Waterway and approve or disapprove each Section Wetland Permits 404 permit. For Section 10 of the Rivers and A number of other federal laws are Harbors Act of 1899 gave the U.S. involved with every decision on Army Corps of Engineers authority Section 10 and Section 404 permits. http://extension.oregonstate.edu/catalogto regulate obstructions to navigable Two of the most important are the waters. "Navigable waters" under National Environmental Policy Act Section 10 are those subject to the ebb (NEPA) and the Fish and Wildlife and flow of the tide, those used for Coordination Act (FWCA). The National Environmental Policy Act of 1969 requires all federal

90 Waterfront Revitalization for Small Cities actions, including the decision to that fish and wildlife be considered Advance Planning grant or deny a permit, be evaluated equally with other factors when for Permits to determine whether they are "major determining the suitability of water- actions" that "will significantly affect way projects. Effort spent in planning your the quality of the human environ- The USFWS also makes broad- project prior to applying for permits ment." If so, a Federal Environmental ranging recommendations on ways to will save a good deal of time and Impact Statement (EIS) must be alleviate adverse impacts. While frustration. The following are prepared to describe the impacts, recommendations of these agencies important, action-oriented planning evaluate alternatives, and consider have a good deal of influence on steps to take before application. long-term versus short-term gains permit decisions, the Corps of Following them will help an and losses. Engineers makes the final decision. If individual or community gather the The thorough project-planning and serious disagreement occurs, there is necessary information, determine environmental evaluation fostered by a procedure for moving the decision project feasibility, and minimize NEPA is designed to ensure thought- to a higher level in the Corps. unnecessary delays. ful, sound, development decisions. Another federal law affecting Although most permits do not permit decisions in the coastal zones DevelopDATE. a Preliminary require a full EIS, the Corps of is the Coastal Zone Management Act Project Proposal Engineers prepares preliminary and (CZMA) of 1972. Section 307 of the Much of the information required final environmental assessments as CZMA requires that Corps decisions part of its internal decision-making. on Section 10/404 permits be OFfor the permit application will be Information gathering and synthesis consistent with federally approved available in your waterfront for an EIS, when required, may state coastal management programs. inventory and plan. Pinpoint the involve a long lead time for a The permit applicant is responsible location of the proposed project on the map. What is the water depth— development project. for making the "consistency" will the project be above or below the The Fish and Wildlife Coordina- determination, which then is certified ordinary (or mean) high water mark? tion Act requires the Corps of by the designated state agency.OUT Engineers to seek advice about In most states, the Corps will not Is the area a wetland, marsh, sand or possible adverse effects of waterway issue a federal permit if the local or mud flat, beach, and forested area? Is IS it a riverbank, gravel bar, or slough? development on aquatic life from the state permits for the activity are What is the river mile? U.S. Fish and Wildlife Service (USFWS), denied. However, issuance of a local Find out who owns the waterway the National Marine Fisheries Service or state permit does not oblige the site and, if land access is required, the (NMFS), and the state departments of Corps to issue the federal permit, fish and wildlife. The law requires though disagreements are uncommon. adjacent upland. Is the area in public information:

Figure 8 Corps of Engineers Regulatory Jurisdiction

Tidal Waters Fresh Waters

current Section PUBLICATIONSection 404 Section 404 ~404^ most High TideTHIS Line For Mean' Ordinary Ordinary High High Water High Water Waterhttp://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 91 ownership (that is, are these tidal Make sure that the deed is valid. leasing rules, and find out when and waters? Are they navigable?) or Check with the state lands agency. If how to make application. private ownership (non-navigable the area is state-owned and must be Finally, using a large-scale map of waters or held under a state deed)? leased, get a copy of the state's your site, rough in development plans. Include areas to be dredged, filled, or excavated; including the amount of material and areas to be riprapped or bulkheaded. Show jetties, groins, piers, wharves, ramps, floats, underwater pipelines, buildings, or other structures. Provide approximate dimensions. The Corps' permit office has sample drawings. Write a brief description of the proposal. Include possible alternatives DATE.and a plan to mitigate adverse environmental effects, if you think one may be required. This preliminary information will be OFuseful during initial contacts with state and federal agencies having jurisdiction over the project. Visit Local, State, and Federal OUT Permitting Agencies If the proposed project fits within the framework of the adopted IS waterfront plan, you should be able to secure local approval rather easily. Nevertheless, there will be reviews, possibly public hearings, and deliberations by elected officials. If a state environmental permit is required, call or visit the appropriate information:agency. Find out what type of permit is needed and what standards will be used to judge the project. Get application forms and instructions. Call or visit the U.S. Army Corps of Engineers District Regulatory Branch Office. Find out whether a Section 10 or Section 404 permit will current be needed. Get application forms and PUBLICATION instructions. Ask for names and addresses of other agency reviewers and find out what standards will be used to make a decision on the project. After visiting local, state, and most federal agencies, list all permits and THIS approvals, how they interrelate, and the steps required for each. For Arrange a Preapplication Conference (optional) http://extension.oregonstate.edu/catalogFor major projects (or smaller projects with technical or design problems, or serious environmental constraints), ask the state or the Corps to arrange a conference with all affected agencies.

92 Waterfront Revitalization for Small Cities Be prepared. Have necessary site nrUA-K l-Vaq.Hna Ray - Marlnal plans, aerial photographs, and environmental descriptions so natural- resource agencies can express their specific concerns and offer useful suggestions. Keep an open mind. Develop a Detailed Project Proposal If the project, as proposed, stands a good chance of approval, prepare a detailed design and assemble required environmental and other information for each permit or approval. Consider the need for professional assistance with design DATE. and engineering. Make full use of available technical assistance from public agencies, incorporating their OF recommendations as far as possible. Develop information that responds to policies and standards of natural resource and other agencies. Prepare mitigation plans if necessary. OUT How Section 10/404 Permits are Processed IS The Corps of Engineers publishes INDICATES STEEL PILING a public notice of a proposed project TO SECURE FLOAIS AND within 15 days of receiving the MOOR BOATS. IAPPROX. 165) PROPOSED MOORAGE MODIFICATIONS completed application. During that AT MILE 1.5 IN YAQUINABAY period, it prepares a preliminary COUNTY OF LINCOLN environmental assessment to STATE OF OREGON information: APPLICATION BY determine whether or not an environ- SCALE IN FEET THE PORT OF NEWPORT mental impact statement is needed. 24 MARCH 1982 SH 1 OF 2 The Corps distributes the public notice to state agencies, interested parties, federal agencies, post offices, wildlife habitat, and state coastal needs, safety, food and fiber produc- and newspapers. Normally, zone management agencies. tion, mineral needs, and, in general, comments must be received within 30 The process leading up to the the needs and welfare of the people. days. Comments from the following currentCorps' decision on whether to issue a Comments from agencies and agencies are particularlyPUBLICATION important. permit is called the "public interest individuals help the Corps in its U.S. Fish and Wildlife Service: review." Originally, the impacts on public interest review. It holds public The USFWS may recommend navigation were the only considera- hearings if necessary, then makes a modification or denial of permit. Dis- tion. But, beginning in 1968, the final determination of need for an EIS agreements may be resolved at higher Corps expanded its review to include and files a final environmental levels in the Departmentmost of the Army. additional factors reflecting the assessment. If there are conflicts, the NationalTHIS Marine Fisheries national concern for both protection Corps makes every effort to resolve Service: NMFS is responsible for man- and use of important resources. them, incorporating agency recom- aging commercial marine fisheries, All public interest factors relevant mendations as much as possible. including anadromousFor fisheries. to a proposal must be considered, Conflicts that cannot be resolved at NMFS' comments relate to preserv- including conservation, economics, the Corps district level are forwarded ing critical habitat forhttp://extension.oregonstate.edu/catalog these species. aesthetics, general environmental to a higher level for a decision. Final- U.S. Environmental Protection concerns, wetlands, cultural values, ly, the Corps determines if the public Agency: The EPA has veto authority fish and wildlife values, flood haz- interest will be served by issuing the on Section 404 permits. Water quahty ards, flood-plain values, land use, permit, develops findings of fact, and is its chief concern. navigation, shore erosion and accre- issues or denies the permit. State Agencies: Those with tion, recreation, water supply and responsibilities for managing fish and conservation, water quality, energy

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96 Waterfront Revitalization for Small Cities The following techniques are Advantages: loosely organized by their objective • They provide a means for mon- or purpose. The techniques overlap itoring community attitudes, knowl- and are not mutually exclusive, so edge, and opinions. they may be used in concert or at • They are relatively inexpensive many points in the planning process. information-gathering devices. The principal source for these • Individuals selected for the techniques is Designing a Citizen survey can be found by reviewing Involvement Program: A Guidebook for voter registration lists, telephone Involving Citizens in the Resolution of directories, and so on. Appendix A Environmental Disputes, by R.E. • They allow for statistically Howell, M.E. Olsen, and D. Olsen, random sampling, thereby ensuring Citizen published by and available from the representative community opinions. Western Rural Development Center, • Mailed questionnaires can Oregon State University, Corvallis, include space for additional com- Involvement Oregon 97331. ments. DATE. • Surveys can indicate the degree Techniques of community consensus on impor- OFtant issues. Information Disadvantages: • Surveys might require more time Gathering and expense than you desire. • If surveys are used too often or if Techniques they require a lot of time and ex- There are two ways of involvingOUT pertise to complete, citizens may not citizens in the information gathering respond. process. • If volunteers are used to First, citizens mayIS be the source of administer surveys, a substantial in- the desired information. For example, vestment of time may be needed to you may solicit their opinions about train them. the relative importance of waterfront • Mail surveys (the least expensive development issues. Opinion sur- technique) have notoriously low veys, interviews, and brainstorming return rates. workshops are examples of ways to get this type of informationinformation: from local residents. Second, part of your approach to citizen involvement might be to develop and train a small group of volunteers who go out and collect information. Using volunteers saves money, provides local experience, currentand builds a cadre of residents with a PUBLICATIONstake in the outcome. Service organizations, youth groups, environmental organizations, and other special interest groups are good resources for most volunteer assistance. THIS Surveys Community-wide surveys can be For conducted in many ways and can include a wide variety of questions. The organizers can mail survey http://extension.oregonstate.edu/catalogquestionnaires to local citizens, deliver the forms to their homes, or conduct telephone interviews or direct person-to-person interviews.

Waterfront Revitalization for Small Cities 97 Brainstorming Disadvantages: A facilitator sohcits public Information • They may limit attendance by comments on a specific topic or low-income people. topics. Another person records the Dissemination • Noises and dining activities may comments on butcher paper, a black- hinder information collection. board, or an overhead projector so Techniques • They are primarily a one-way interaction, with the public the comments are clearly seen and Explaining complex issues or expressing views. acknowledged by all participants. information to local residents is • The number of participants must The comments are not evaluated but important in all stages of planning be kept small. sorted into topical categories. and implementation. The following Then participants split into groups public-involvement techniques will and each group evaluates the irifor- help the community understand the mation and sets priorities. The whole issues, avoid confusion and unneces- Direct Mailings group reconvenes and each group sary conflict, and effectively partici- Brochures or mini-reports can be shares its ideas with the others. pate in the process. mailedDATE. directly to citizens who live in Advantages: For example, various public the subject community. All brochures • Brainstorming is a fairly quick meetings can be used to explain and reports should contain a and easy means to inventory major inventory data and survey results, or common package of information, issues, public concern, and feelings. present alternative design scenarios. OFwhich outlines specific technical • It provides a setting where par- Opportunities to speak out, exchange considerations, possible alternatives, ticipation in future activities may be information, and debate interpreta- and other pertinent factors and also announced and discussed. tions are often part of such meet- provides the names, addresses, and • The process encourages all ideas ings—giving groups with diverse telephone numbers of individuals, and, in the evaluation phase, pro- interests an opportunity to get to organizations, or agencies who can motes interaction and synergy. know one another in a non-confronta-OUT provide further information. tional setting. Disadvantages: Vehicles for communicating Advantages: • It can result in a confrontation. information includeIS breakfast meet- • They are an effective and wide- • Participants may not be ings, direct mailings, field trips, spread means of communication representative. hotlines, information centers, open when distributing information to a • Results must be summarized houses, seminars, informal group large number of people. and reported back. discussions, and mass media. Disadvantages: • They are a one-way technique. The agency and technical experts Fast-Forum Technique Breakfastinformation: Meetings send information to the community The fast-forum technique involves but do not receive any feedback. These are regularly scheduled and a series of brief surveys collecting • They offer limited citizen, centrally located meetings designed citizen feedback on specific ideas or agency, or industry contact. for informal dialogue between the actions. It asks for "yes" or "no" • They require extensive prepara- project developers, the facilitators, answers to concise questions. The tion and can be moderately expen- and the public. The primary role of surveys are distributed periodically sive. the developers and facilitators is during the planning process in order listening to public concerns. Comments to solicit immediate public response.current may be recorded, summarized, and They then can be PUBLICATIONdistributed by local sent to other participants. To ensure Field Trips or Tours organizations or mailed directly. that a cross section of the community Buses are provided, or carpools are Advantages: is involved, invitations may be arranged for transportation to the • It allows decision makers to extended to the memberships of waterfront area. There are a variety of closely monitor publicmost opinion. various community organizations or reasons for a field trip or tour, includ- interest groups. Disadvantages:THIS ing identifying problems or opportu- • It is subject to short-term citizen Advantages: nities, examining site development perceptionsFor and doesn't necessarily • They provide an informal proposals or options, and identifying represent the collective view. atmosphere. opportunities for interpretation. • Individuals may become apa- • They help agencies and industry It is important to have a guide, thetic about respondinghttp://extension.oregonstate.edu/catalog to several keep a pulse on public concerns and staff specialists, and outside experts surveys, give false responses, or not feelings. to provide needed information about return the surveys. • It is strictly a one-way method of collecting information.

98 Waterfront Revitalization for Small Cities Hotlines • They require careful planning and substantial effort. Hotlines provide a ready source of • They can be expensive in terms information that citizens can obtain at of personnel and informational their convenience. Government material. agencies or community organizations • If not staffed by knowledgeable can hire hotline personnel to answer personnel, they can provide misinfor- questions, direct individuals to the mation. proper sources, and register names for specific mailing lists. Advantages: Open Houses • They allow for quick information dissemination. A well-known public building is • They can serve as a means for used to set up informational displays, receiving citizen input. maps, photographs, and brochures. HandoutsDATE. also are available. Project Disadvantages: developers, facilitators, staff • They are primarily a one-way specialists, and outside experts are information exchange technique. present to provide information, • They provide limited citizen, OFanswer questions, and discuss the agency, or industry contact. issues in an informal but potentially • They can be expensive to in-depth manner. operate. Advantages: the area and possible effects; show the • They provide an informal atmos- proposed location of improvements OUT phere for contacts between citizens, and activities; and answer any ques- Information Centers agencies, and industry. tions that may arise. Such centers are ISwell-publicized • They allow quick and easy Advantages: places where public information can access to a large amount of informa- • They provide firsthand knowl- be easily obtained. They can be tion. edge of the site. formal centers, established exclu- • The public may attend at their • Printed materials related to the sively to disseminate information; convenience and spend as much time site and proposed action can be dis- or they can be informal areas where as necessary. tributed. citizens normally gather, such as Disadvantages: • They provide an informal setting banks, barber shops, taverns, and stores. • They require much planning, for discussion. information: Advantages: time, and expense. Disadvantages: • They allow quick and easy acces- • They require experts who can be • They require much planning for sibility to information. available for a long period of time to advance notice, transportation, and • They represent the agency's or answer any questions presented. accessibility. industry's desire to make information • The weather may interfere with accessible. the trip. • They can be staffed by profes- Informal • The physical condition and capa-current sionals capable of giving accurate Group Discussions bilities of participantsPUBLICATION need to be taken information or providing correct into account. information sources to the public. These are meetings consisting of • A number of experts may need to small discussion groups involving be present to answer questions. Disadvantages: • They provide marginal citizen, community leaders, general citizens, • Citizen, agency, or industry inter- agency officials, and any combination action may be minimal.most agency, or industry contact and communication. thereof. Their primary purpose is to • Insects,THIS noises, and other factors present information, analyze com- may inhibit group interaction. munity needs, outline community opinions, and discuss ideas for For stimulating community awareness of key issues. http://extension.oregonstate.edu/catalogAdvantages: • They can begin the initial process of exchanging information and assessing community needs among community leaders and agency and industry representatives.

Waterfront Revitalization for Small Cities 99 • Their informal nature encour- representatives can ask questions, Problem-solving principles, such ages a high degree of intimate citizen, present specific technical inform- as separating people from the agency, or industry contact. ation, and freely discuss alternatives problem, focusing on interests • Individuals who remain silent and impacts upon the community. instead of positions, and inventing under more formal conditions tend to Technical advisors and program options without evaluating them are express opinions. facihtators should always be present effectively employed in such Disadvantages: to answer questions and moderate discussions. The goal of achieving some • They seldom reflect community- discussion. In addition to being an degree of consensus is often met. wide representation. effective way to explain issues or give information, seminars are also an excellent interaction technique. Task Forces Mass Media Advantages: • They provide a two-way A task force is comprised of citizen This technique is the planned and information exchange medium. representatives who form a planning systematic use of major media, such • They allow a high degree of or advisory body. After reviewing as news releases, articles in local citizen-agency contact. informationDATE. on a specific issue or pubhcations, newsletters, brochures, • Problems and alternatives can be option, the task force recommends a pamphlets, paid ads, posters and discussed without pressure to arrive course of action to the decision- displays, public service announce- at formal decisions. OFmaking body. Task force representa- ments, participation-style radio and • The information provided helps tives should include members of all television programs, television to build community awareness. economic levels and geographic locales of the community. documentaries, and radio and Disadvantages: Advantages: television talk shows. • They can become confrontational Mass media can be one of the most meetings between opposing interests, • They generate greater citizen effective ways to spread general rather than free information/discus-OUT participation throughout the commu- information or provide details sion settings, unless participant nity, spreading citizen awareness and concerning a particular issue. discussion is guidedIS by a neutral expertise. Agencies can directly transmit moderator. • Giving task force groups pertinent information, and com- well-defined objectives helps deci- munity organizations can inform sion—making bodies to assess the al- citizens of important meeting dates. ternatives during the planning phase. Often, the media itself will initiate • A task force encourages a crea- coverage of the waterfront program. Techniques to tive approach to problem solving. Advantages: Promote Citizen- Disadvantages: • It ensures wide community information: • Members of the task force must information coverage. Government- understand they are accountable to a • It enables technical advisors to citizen decision-making body. debate issues and alternatives before Business Interaction • Members must be willing to a wide audience. Another important objective of spend a considerable amount of time • Citizens have the convenience of public involvement is to promote to accomphsh their objective. sitting in their own homes and direct communication between • Members must be given substan- assessing technical information. currentopposing groups of citizens, govern- tial amounts of information and help Disadvantages: PUBLICATIONment agencies, or private sector from technical experts. • It requires careful planning and representatives. They are primarily can be costly. opportunities for two-way communi- • It is generally limited to a one- cation, and are used to clarify the Citizen Advisory way exchange of information. nature and degree of common and Committees most different interests and positions. Such THIS techniques require skilled facilitation The Citizen Advisory Committee Seminars for them to be productive and is a small group of persons chosen to promote mutual understanding. represent the views of the commu- SeminarsFor bring together all nity-at-large, and to give government interested parties affected by and industry representatives advice potential development. In this concerning policy decisions. Citizens relatively informalhttp://extension.oregonstate.edu/catalog setting, citizens, selected for the advisory committee government, and industry are usually chosen by an agency or industry and then tacitly approved by the community.

200 Waterfront Revitalization for Small Cities The advisory committee reviews Advantages: • Because charrettes require large proposed agency or industry plans, • Much information can be segments of the participants' time, assesses community opinions and assimilated and discussed. they may not include some key attitudes, and then prepares a formal • A high degree of citizen, agency, community leaders. recommendation to government or and industry interaction occurs. • They usually do not provide industry based upon its interpreta- • Issues can be fully discussed and community-wide representation. tion of public desires. The committee's solutions developed. sole claim to power rests upon the • Working groups provide instant influence of citizen recommendations. feedback to the agency or industry. Workshops Advantages: Disadvantages: Workshops are special informa- • They serve as a liaison between • Working groups require much tion-review sessions, which are open agencies and the community. time and effort by citizen, agency, to citizens, government officials, and • They allow government and and industry participants. industry representatives. In an industry personnel to work directly • Members may not be representa- intense educational environment, with a single group of citizen repre- tive of the general public. participantsDATE. identify and analyze sentatives. • Members must report to their major points on specific topics, issues, organizations or agencies about the Disadvantages: or alternatives. Brainstorming information collected and the issues • Representative membership is techniques may be especially useful discussed. seldom achieved. OFin this setting. • Such committees traditionally • A great deal of information must have low citizen input, thus making it be available, and experts must be Advantages: difficult to obtain wide community present. • They are a practical method of support for recommendations. introducing new ideas. • Individuals appointed to advi- OUT • They offer a high degree of sory committees must be willing to Charrettes contact between citizen, government, spend a considerable amount of time and industry. on their appointed duties. A charrette is anIS intense planning • Successful workshops can • The committees lack power to session by all of the interest groups substantially improve the know- influence agencies or industry. involved in the policy-planning or ledge and mirror the perceptions of design process. Charrette participants all groups involved. meet with the understanding they Disadvantages: Working Groups will continue discussion and negotia- • For the best results, workshops tion until some form of resolution or should require some participant Participants are divided into agreement can be achieved. A char- selectivity, with the result that groups of 6 to 12 members. Each rette can continueinformation: for several days or community representation is not group must have members who weeks, depending on how long it achieved. represent a variety of views and takes to reach specific decisions. • Care must be taken so work- positions within the affected area. Advantages: shops do not become manipulative, Members act as a communication link • Participants share a mutual or tools for government or industry to the organization, agency, or group commitment to negotiate and discuss representatives, or other well- they represent. until a clear-cut course of action is informed special interest groups. Each group works with the plan- currentagreed upon. ning team, developers,PUBLICATION or facihtators • They are probably the swiftest throughout a review or planning means for citizens, government, and Community Forums period. The first meeting is called by industry representatives to make the facilitator who informs the group agreements. Community forums can be an of what is under review and how Disadvantages: information dissemination process; a their efforts will be used. Thereafter, citizen, agency, or industry interac- most • They require a great deal of the members call the meetings as tion process; or a combination THIS planning and can be costly to con- deemed necessary for the proper thereof. At its best, the community duct. investigation of an issue. forum is the answer to avoiding the FacilitatorsFor and staff speciahsts pressures and confrontations of a assist in conducting meetings, formal public hearing. answering questions, and collecting Like public hearings, they bring information. The grouphttp://extension.oregonstate.edu/catalog is given no together citizens, agency, and decision-making authority.

Waterfront Revitalization for Small Cities 101 industry representatives, and a host Disadvantages: of technical experts. The major • Some procedures, such as hiring difference is formal testimony is not a full-time lobbyist, are expensive. Decision-Making recorded and documented as the final • Lobbying does not always pubhc, agency, or industry position. provide government officials Techniques Forums allow direct, but not with a balanced view of issues. The pubhc becomes involved in binding, views to be presented. They decision-making in a variety of ways. are, in a sense, a rehearsal of the These techniques are used once formal pubhc hearing, where views Public Hearings issues, information, and interests or will go on record as being the final positions are sufficiently understood. word. A forum gives all participating Pubhc hearings serve to legally They are used at key junctures in the groups time to: reanalyze their document public, agency, and planning and implementation original positions, continue an open industry views toward particular process, such as deciding on favored dialogue, and anticipate the expected issues. They are required in govern- plan alternatives, plan adoption, and results of a formal public hearing. ment decision making at almost all implementationDATE. of specific develop- Advantages: levels of public policy. Individuals ment proposals. They build on earlier • They provide for excellent give testimony about certain projects, efforts to clarify issues and promote citizen, agency, and industry interac- and their opinions or the viewpoints understanding. When consensus is tion. of groups which they represent. OFachieved on key issues, both govern- • They offer the opportunity for Pubhc hearings are open to all ment and the private sector are more widespread citizen participation. individuals and groups to present likely to invest in completing revitah- • They tend to limit confronta- their views for the official record. zation projects. tional politics and ill feelings between Advantages: active parties. • They formally document citizen, Disadvantages: government, or industry OUTpositions. Mediation • Special interest groups can gain Disadvantages: control of forum presentations and • They seldom ISare conducive to In a mediation process, a mediator information unless a neutral modera- widespread pubhc representation. serves as an independent, impartial tor is present. • They usually enhance confronta- third party who helps conflicting tion and a polarization on issues. parties negotiate their differences and • A few individuals or special build consensus. Lobbying interest groups usually dominate . The mediator possesses no actual • Citizens tend to give testimony power, but serves to help each Lobbying can be an effective with little interactioninformation: or discussion interest group arrive at a common public-participation technique, with agency or industry representa- viewpoint or consensus. The usually organized outside the formal tives. mediator attempts to identify the planning process. • Hearings can increase adversar- positive and negative features of the Citizens may decide to limit ial relationships between citizens, views that have been presented by lobbying activities to writing letters, government, and industry citizens, government, and industry telephoning elected representatives, representatives. representatives, and contribute to or sending petitions or telegrams to • Many individuals are embar- mutual understanding among partici- pertinent local, state, federal officials.current rassed to ask questions at pubhc pants. With a successful mediation, In order to gain greaterPUBLICATION influence, hearings. the parties involved agree to and sign citizens may decide to employ a • When reporting the events of a decision document on behalf of the full-time lobbyist who presents pubhc hearings, the media usually party or group they represent. community views directly to state or describe only confrontation Advantages: federal legislators. Some lobbying situations. • It can improve attitudes and re- procedures can be usedmost along with • Hearings sometimes are held lations among citizens, industry otherTHIS citizen involvement techniques after a decision on a particular issue representatives, and agency officials. without endangering citizen, agency, already has been reached by govern- • It may bring out information and industry communication. ment or industry planners. from citizens who are reluctant to Advantages:For • There often is only pro-forma discuss such information directly • Some procedures, such as the reaction by government agencies in with government or industry repre- sending of telegrams to representa- order to honor the legal mandate of sentatives. tives, require httlehttp://extension.oregonstate.edu/catalog citizen effort or citizen involvement. • It can identify specific problems time. and can, in some cases, recommend • Lobbying is a traditional right. alternatives or changes which are • Citizens give greater political agreeable to all of the parties con- impact to their views through lobby- cerned. ing measures.

202 Waterfront Revitalization for Small Cities • A mediator can propose and Citizen Review Board Fish-bowl planning is, of course, explore alternative solutions oppos- effective only when it is carried out in ing parties might not be able put on The citizen review board exhibits conjunction with information- the table on their own. all the characteristics of the citizen dissemination techniques. advisory council except it wields the Disadvantages: Advantages: ultimate decision-making authority. • The power or influence of the • It generates widespread citizen Like the advisory board, the mediator depends upon the coopera- participation. review board may be elected directly tion and goodwill of all of the parties • It allows the general public to by citizens, appointed by government involved. react, redefine, and, in some cases, or industry representatives, or both. • Government agency officials or enthusiastically support final deci- The review board analyzes technical industry representatives may use the sions. information and proposals that have mediator in order to avoid direct • It provides government and been brought forth by citizens, contact with citizens. industry representatives with a de- government agencies, and industry, tailed outline of public consensus. and then gives a formal recommendation for future actions. The Disadvantages:DATE. Arbitrative Planning ultimate decisions reached by the • Citizens need time to view the review board are binding on citizens, necessary technical information prior Arbitrative planning is similar to government agencies, and industry. to the fish-bowl planning process. the mediator approach. An • Fish-bowl planning does not Advantages: OF individual expert is hired by citizens, necessarily guarantee the wishes of • It gives formidable power to citi- government agencies, and industry to the citizen majority will be followed, zens. serve as a hearing officer to arbitrate even though they were stated explic- • Citizens in the community are among community, agency, and itly. industry members in policy planning. more likely to accept and abide by In an attempt to offer suitable decisions which have beenOUT made by a compromises for all interest groups, citizen review board than by those the hearing officer evaluates each that government agencies and Local Referendum industry attempt toIS enforce. side of the story. Unlike the The citizen referendum is an mediator's authority, the arbitrator's Disadvantages: extremely democratic technique, rulings are binding on communities, • A review board does not ensure whereby proposed planning meas- agencies, and industry. community representation. ures are directly brought before the Advantages: • It is extremely difficult for gov- voting citizenry for acceptance or • It enables an outside, neutral ernment and industry representatives disapproval by a balloting process. party to make the ultimate decisions to accept willingly the recommenda- The local referendum procedure is which affect the various special- tions of a citizeninformation: review board. identical to the state referendum interest groups. procedure, except that a local Disadvantages: referendum is on a community scale. • It is sometimes extremely diffi- Fish-Bowl Planning Citizens can vote at their normal cult to convince citizens, government, polling stations. Fish-bowl planning is used to open and industry representatives to Advantages: the planning process to a wide accept the final judgment of an • It guarantees community-wide variety of interests. Alternatives to a outside authority. representation. currentcourse of action that have been • Arbitrative planning can stimu- • Citizens are likely to support, PUBLICATIONgenerated by citizen and agency late citizen, agency, and industry willingly, any action that they have discussion are described in a series of communication, but often in a approved at the ballot box. public information bulletins. confrontation setting. Citizens can express their views in Disadvantages: most bulletin space designated for this • A referendum fosters little purpose, and mail the bulletins back citizen, agency, and industry contact. THIS to the distributing source. These • It requires that citizens be well- citizen comments are reiterated and informed. For again distributed to the general • The views of a narrow majority public for interpretation and analysis. may be implemented, while minority In this way, the agency, planner, or opinions may be ignored. http://extension.oregonstate.edu/catalogindustry that proposes certain courses of action can determine the plan's most controversial aspects.

Waterfront Revitalization for Small Cities 103 Media-Based In the first-round questionnaire, Citizen Lawsuit respondents are asked to list their Issue Balloting preferences, pro-or-con, on the The citizen-initiated lawsuit In this process, the mass media is alternatives outhned. demonstrates an unwillingness of used to present and discuss issues, The second-round questionnaire citizens, and government or industry and the public is invited to vote on begins by presenting opinions, representatives to negotiate and their preferred alternatives. The viewpoints, and alternatives that discuss policy plans. In effect, it takes choice of the media base is at the were selected by the first- round the decision-making process out of discretion of citizens, government, process. Respondents than are asked the hands of government or industry and industry representatives. to list their degree of confidence in, representatives and citizens, and For example, local television agreement with, and acceptance of opens it up to judicial review. stations can present panel discussions the results of the first questionnaire. Sometimes, citizen lawsuits are and then have citizens call in then- This evaluation process is carried initiated after a substantial amount of views or their votes; or, to give the out through several rounds of negotiation has already occurred. At audience more reaction time, ballots questionnaires until consensus on key this point, citizens feel government or can be issued through newspapers. issues and priorities begins to industryDATE. representatives are not emerge. During the final rounds of offering them the best options Advantages: the questionnaires, it will become available. Hoping to gain a more • It is conducive to widespread apparent where consensus lies on responsive forum, citizens seek citizen representation. specific issues, and what degree of OFredress through the courts. • It can be used by government support different positions have. Advantages: and industry representatives to assess To a certain extent, the Policy citizen consensus. • It offers a means for citizens to Delphi resembles fish-bowl planning, challenge the decisions made by Disadvantages: except that the number of respon- government or industry representa- • It does not enhance direct dents is reduced to a selectOUT panel. tives that they feel are not in the citizen, agency, and industry commu- Advantages: public interest. nication and interaction. • One asset of PoUcy Delphi is that • It definitely leads to a decision— • Even if a clear consensus is respondents are requestedIS to state a decision thought to stem from a apparent, it does not guarantee their reasons for their positions. responsible governing body. citizen viewpoints will be upheld by These reasons are, in turn, viewed by government and industry Disadvantages: other respondents and evaluated. • It can be initiated by special representatives. After a number of questioning interest groups within the rounds, respondents may change larger-community constituency, their original positions if they become therefore, not reflecting community- Policy Delphi convinced thatinformation: their original justifica- wide opinion. tions are no longer viable. • It quickly brings to an end The Policy Delphi is a series of • Policy Delphi allows time for questioning sessions directed toward constructive citizen, agency and respondents to assess the material industry negotiation and discussion; an appointed panel that represents they are evaluating. various community interests as well cooperative communication breaks • It restricts the impact of small, down. as involved government agencies and special interest groups. industry. The questioning can take place either in meetings or in a seriescurrent Disadvantages: of mailed questionnaires.PUBLICATION • It does not provide a representative sample of community opinion. • It requires respondents be well- informed. • It requires extensive coordina- most tion by an experienced moderator. THIS For http://extension.oregonstate.edu/catalog

204 Waterfront Revitalization for Small Cities The term "waterfront revitaliza- In Part III—Revitalization Issues, tion" has many applications to Tools and Techniques, techniques of projects in coastal and river commu- financing waterfront development nities. To port interests, it can apply are described in more detail. These to business assistance for construc- include revenue sources from debt tion or rehabilitation of docks. To a obligation to private-public partner- city council with a deteriorated ships, some of which are very specific riverfront, it may apply to planning to individual state programs. and funding a boardwalk or park. To The determination of whether a Appendix B engineering departments, it could community uses municipal bonds, is mean stabilizing an eroding river- eligible for government funds, or Sources of bank. To a waterfront business, it applies for grants from nonprofit could mean revamping a storefront. agencies is dependent upon the scale Financial Such varied definitions of water- of the project, whether public access front revitalization determine the or ownership is involved, and how Assistance specific forms of assistance that the projectDATE. will affect the community. communities and groups should This appendix reviews the general seek. forms of financial assistance available Stage Four—Implementing the from the federal government, and Waterfront Plan in Part II— Revitaliz- OFintroduces private grant sources and ing Your Waterfront, of this guide techniques for tapping them. refers to the need for project leaders Note also that many federal to identify both public and private programs are administered through funding sources very early in the state governments, and that regional implementation stage of waterfrontOUT offices of federal agencies may be revitalization. your best source of information on IS current programs.

information:

PUBLICATIONcurrent most THIS For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 105 • Project Grants—Funds available 10.904 to cover a specific project. No repay- Federal Assistance ment is necessary, but the grants may Watershed Protection and Programs not cover the entire cost of the Flood Prevention (Small project. Watershed Program) Any guide to federal programs can • Formula Grants—The distribu- Department of Agriculture, Soil quickly become outdated. For tion of money is based on a predeter- Conservation Service mined formula. Often the grants are instance, several of the agencies listed Assistance: in the 1980 pubhcation Improving general and may be used at the discretion of the applicant. Project and cost-sharing grants, Your Waterfront—A Practical Guide advisory service, and counseling. (see Part I BibHography) have been Eligibility: eliminated. Among the best sources for current funding information are Federal Government State and local governments and agencies, Indian tribes, or nonprofit the Catalog of Federal Domestic Assis- Program Descriptions tance and a privately pubhshed guide organizations with authority under state law. to the catalog called The Government DATE. Assistance Almanac. (See further 10.901 Purpose: information on these sources below.) To assist in planning and carrying out Resource Conservation and works of improvement to protect, Development OFdevelop, and utilize the land and How to Use Department of Agriculture, Soil water resources of small watersheds Conservation Service (250,000 acres or less). Erosion control the Program Descriptions is the main objective of this assis- Assistance: tance, although fish and wildlife The names and brief description of Project grants, advisory service, recreation projects might be consid- federal programs for waterfront counsehng. Primarily cost-sharingOUT ered. Funds may go to private revitahzation are listed below. The grants. landowners, but their projects must list is keyed to the Catalog of Federal Eligibility: IS be sponsored by an eligible applicant. Domestic Assistance index number, State and local governments, Range: and descriptions provide enough non-profit organizations, within Up to $7,500,000 information to determine if further designated Rural Conservation and research into the program may be Development (RC&D) counties. Contact: See 10.901 fruitful. Information appears in the Purpose: following order: To prepare and execute RC&D plans. • Federal assistance number and Common uses are: flood prevention, program name information:11.300 erosion control, public water-based •Funding agency recreation, water management, fish Public Works and • Type of assistance and wildlife developments, and • Eligibility Development Facilities abatement of agriculture-related • Purpose of assistance Assistance pollution. Eligible uses would be • Approximate range of grants Department of Commerce, Economic construction of boat launches or Development Administration awarded in dollar amounts fishing piers. • The best contact, at this writing, Assistance: for further program information currentRange: Grants normally ranging from 50 per- $10,000 - $500,000 The programs encompassPUBLICATION the cent to 80 percent of total project cost. following types of assistance: Contact: Eligibility: • Technical Assistance—Various Local field office of the Soil State, cities, or counties. Indian tribes, forms of aid, but no money. Conservation Service or public and private nonprofit organi- • Free Services ormost Donations—No Department of Agriculture. zations. Must be located within an money, but often services which For more information, contact: EDA-designated redevelopment area. THIS Deputy Chief of Programs involve costs or construction or Purpose: Soil Conservation Service outright donations of property or To assist communities with funding U.S. Department of Agriculture materials. public works and development For P.O. Box 2890 • Guaranteed and Cost-Sharing facilities that contribute to the Washington, DC 20013 Loans—A wide range of assistance in creation or retention of private sector (202) 447-4527 obtaining loans. http://extension.oregonstate.edu/catalogjobs, and to the alleviation of • Cost Sharing Grants—The ap- unemployment or underemployment. plicant and assisting agency contrib- For example, water and sewer ute either matching funds or some systems, roads to industrial parks, other specified division of costs. port facilities.

206 Waterfront Revitahzation for Small Cities Applications from rural communi- 11.302 Range: ties will be reviewed with particular $7,500-$250,000 interest. Tourism or recreation will Economic Development— Contact: not be supported unless it can be Support for Planning Technical Assistance Programs demonstrated that tourism is a major Organizations Economic Development Administration industry in the area or will provide Department of Commerce Room 7313, Herbert Hoover Building other substantial benefits. Economic Development Administration Department of Commerce Range: Assistance: Washington, D.C. 20230 $56,000 - $5,600,000 Grants for up to 75 percent of project (202)377-2127 Contact: costs. Public Works Division Eligibility: 11.305 Economic Development Administration See 11.300 Room H7326 Purpose: Economic Development — Herbert C. Hoover Building To defray the administrative State and Local Economic U.S. Department of Commerce expenses in economic development Washington, DC 20230 DevelopmentDATE. Planning planning efforts. Preference will be (202) 377-5265 Department of Commerce, Economic given to currently funded grantees. Development Administration Indian tribes may receive 100 percent Assistance: 11.301 funding. Emphasis is on reducing OFGrant assistance up to 75 percent of unemployment and increasing project cost. Business Development income. Administrative expenses are Assistance commonly staff salaries. Eligibility: States, cities and urban counties. Department of Commerce, Economic Range: Development Administration $25,000-$125,000 Purpose: OUT To provide planning assistance to Assistance: Contact: strengthen economic-development Guarantee up to 80 percent of Chief, Planning Division planning and policy-making capabili- principal and interest on loans. Economic DevelopmentIS Administration ties of the grantee. Such assistance Eligibility: Room H7023, Herbert Hoover will ensure more effective use of Public or private borrowers in Building available resources in addressing designated areas of EDA assistance. Department of Commerce economic problems, particularly Purpose: Washington, D.C. 20230 those resulting in high unemploy- To acquire fixed assets of working (202) 377-2973 ment and low income. Stresses capital to create or retain permanent comprehensive planning that is jobs by the estabhshment or 11.303 information:coordinated with other levels of expansion of production plants. government and leads to the formula- Recently renovated facilities may be Economic Development — tion of development goals and exempt, as well as products where Technical Assistance strategies to achieve them. supply exceeds demand. Department of Commerce, Economic Range: Range: Development Administration $40/000-$165,000 $500,000-$111,100,000 Assistance: Contact: Contact: currentProject grants up to 75 percent of cost. See 11.302 Deputy Assistant SecretaryPUBLICATION for Loan Eligibility: Programs States, cities, counties; private 11.307 Economic Development Administration nonprofit groups; and educational Room H7844, Herbert Hoover institutions. Special Economic Building Purpose: Department of Commercemost Development and Adjustment To provide technical assistance in Washington, D.C. 20230 Assistance Program— THIS developing data and expertise in (202) 377-5067 Sudden and Severe Economic evaluating and planning specific economic development projects and Dislocation and Long-Term For programs in depressed areas. Economic Deterioration Funding requests must be useful in Department of Commerce, Economic http://extension.oregonstate.edu/catalogalleviating or reducing unemploy- Development Administration ment or underemployment. The local Assistance: and national categories are separate Grants of up to 75 percent of project programs. cost Eligibility: See 11.300

Waterfront Revitalization for Small Cities 107 Purpose: Eligibility: Assistance: To assist areas experiencing State and local governments or other Advisory services, counseling, long-term or sudden economic responsible local agencies. technical information deterioration or dislocation. May be Purpose: Eligibility: used to finance public facilities or To control beach and shore erosion to See 12.101 services, business development, public coastlines through design and Purpose: technical assistance and training. construction of erosion-control To promote recognition of flood Cyclical or seasonal job losses are not structures. All land, easements, water hazards in land- and water-use eligible. Eligibility is based on pollution effects, and maintenance planning through provision of data. threatened dislocation, as well as past will be borne by the apphcant. dislocation. Job creation is paramount. Range: Range: N/A Range: N/A No specific minimum or maximum Contact: Contact: U.S. Army Corps of Engineers Contact: U.S. Army Corps of Engineers ATTN: CECW-PF Director, Economic Adjustment Division Attn: CECW-PM Department of the Army Economic Development Administration DATE. U.S. Department of Defense Washington, D.C. 20314-1000 Room H7327, Herbert Hoover Washington, DC 20314-1000 (202) 272-0169 Building (202) 272-0144 Department of Commerce OF Washington, D.C. 20230 12.105 (202) 377-2659 12.102 Protection of Essential Emergency Rehabilitation of Highways, Highway Bridge 11.415 Flood Control Works and Approaches, and Public Fishing Vessel Obligation Federally-AuthorizedOUT Coastal Works (Emergency Bank Guarantees Protection Works Protection) Department of Commerce, NOAA, Department of theIS Army, Corps of Department of the Army, Corps of National Marine Fisheries Service Engineers Engineers Assistance: Assistance: Assistance: Specialized Services (design and Loan guarantees up to 87.5 percent of SpeciaUzed Services (design and loan. construction). construction) Eligibility: Eligibility: Eligibility: Qualified apphcant and approved State and local governments or other See 12.101 responsible local agencies. lender. information:Purpose: Purpose: Purpose: To provide bank protection of To finance or upgrade fishing vessels To assist in the repair or restoration highways, highway bridges and and shoreside facilities. of flood-control works (shoreline essential public works endangered by protection devices) damaged by flood Range: flood-caused erosion. Requires or extraordinary wind, wave, or flood-caused erosion. $100,000-$10,000,000 water action. This is emergency Contact: assistance for repair. Original Range: Chief, Financial Services Division currentstructures must have been adequately N/A National Marine FisheriesPUBLICATION Service designed and repaired. Contact: Department of Commerce Range: See 12.101 1825 Connecticut Ave., NW N/A Washington, DC 20235 (202) 673-5424 Contact: 12.106 most Commander, U.S. Army Corps of Engineers Flood Control Projects (Small 12.101THIS ATTN: CECW-OE Flood Control Projects) Department of the Army Department of the Army, Corps of Beach ErosionFor Control Washington, D.C. 20314 Engineers Projects (Small Beach Erosion (202) 272-0251 Assistance: Control Projects) Specialized Services (design and Department of thehttp://extension.oregonstate.edu/catalog Army, Corps of 12.104 construction) Engineers Eligibility: Assistance: Flood-Plain Management See 12.101 Specialized services (design and Services Purpose: construction) Department of the Army, Corps of To assist flood-control projects not Engineers

108 Waterfront Revitalization for Small Cities specifically authorized by Congress, 12.109 14.218 i.e., levees, dikes, small dams. Communities facing flood problems Protection, Clearing and Community Development that hinder enhancement of their Straightening Channels Block Grants/Entitlement waterfronts may be eligible. (Emergency Dredging Grants Range: Projects) Department of Housing and Urban N/A Department of the Army, Corps of Development, Community Planning Contact: Engineers and Development See 12.101 Assistance: Assistance: Specialized Services Formula grants 12.107 Eligibility: Eligibility: See 12.101 Cities with populations greater than Navigation Projects (Small Purpose: 50,000. Urban counties with a Navigation Projects) To restore channels for navigation population greater than 200,000. Department of the Army, Corps of and flood-control purposes. (Dredg- Smaller citiesDATE. in metropolitan areas. Engineers ing) Purpose: Assistance: Range: To rehabilitate residential or nonresi- Specialized Services (design and N/A dential areas and thus develop viable construction) OFurban communities and expand Contact: economic opportunity. Special Eligibility: Commander, U.S. Army Corps of Native-American program under State and local governments or other Engineers #14.223. Principal benefit must be to responsible local agencies. ATTN: CECW-OM low- or moderate-income persons. Purpose: Department of the Army This program provides a wide To design and construct small Washington, D.C. 20314-1775OUT definition of applicable uses. Sub- navigation projects not specifically (202) 272-0242 grants are allowed to businesses or authorized by Congress. IS other groups. Some states administer. Range: 12.700 Range: N/A Determined by formula. Contact: Donations/Loans of Obsolete Contact: See 12.101 D.O.D. Property Office of Block Grant Assistance Department of Defense, Secretaries of Community Planning and Development Military Departments 12.108 U.S. Department of Housing and Assistance: information:Urban Development Snagging and Clearing for Donations, Loans 541 7th St. SW Flood Control Eligibility: Washington, DC 20410 (202) 755-9267 Department of the Army, Corps of State and local governments, librar- Engineers ies, museums, and historical societies. Assistance: Purpose: 14.219 Specialized Services (Snag and Debris To donate or loan books, manu- Removal) currentscripts, works of art, drawings, plans, Community Development Eligibility: PUBLICATIONmodels, and other specified items. Block Grants/Small-Cities See 12.101 This assistance could possibly be Program used to obtain boats, ships, or shore Department of Housing and Urban Purpose: facility artifacts for display. To remove accumulated snags and Development, Community Planning debris for channel clearing and Range: and Development (Small Cities) straightening to reducemost flood N/A Assistance: damages.THIS Possible justified benefits Contact: Project grants and loans might include prevention of flood General information, nearest military Eligibility: damages, navigation, recreation, or installation. Otherwise appropriate Governments of small cities and environmentalFor enhancement. military department headquarters. counties. Range: Purpose: N/A http://extension.oregonstate.edu/catalogSee 14.218 Contact: Range: See 12.101 See 14.218 Contact: See 14.218

Waterfront Revitalization for Small Cities 109 14.220 Range: Purpose: $117,000-$5,497,900 To provide assistance for the pre- Section 312 Contact: paration of comprehensive statewide Rehabilitation Loans U.S.Fish and Wildlife Service outdoor recreation plans and for the Department of Housing and Urban Department of the Interior acquisition and development of Development, Community Planning Washington, DC 20240 outdoor recreation areas and facihties Division (202)235-1526 for the general public. Federal Assistance: administration level is the Recreation Grants Division. Low-interest loans 15.904 Eligibility: Range: Property owners and tenants of Historic Preservation Fund $150-$5,450,000 residential and nonresidential Grants-In-Aid Contact: Recreation Grants Division property in eligible Community Department of Interior, National Park National Park Service Development Block Grant areas. Service Must produce loan security. Department of the Interior Assistance: Washington,DATE. DC 20013-7127 Purpose: Cost-Sharing Grants (matching) To rehabilitate residential, nonresi- (202) 343-3700 Eligibility: dential, or mixed-use properties. State, local governments, public and Priority to apphcants of low-income, private organizations, and private OF15.918 single-family property. A related owners. program, #14.222 "Urban Home- Disposal of Federal Surplus steading," provides for the federal Purpose: Real Property for Parks, To expand and maintain the National government to turn over substandard Recreation and Historic properties to individuals capable of Register of Historic Places, and assist repairing and occupying them. in the identification, evaluation,OUT and Monuments protection of these properties. Funds Range: (Surplus Property Program) may not be used for acquisition or Limit of $33,500 for a single unit, Department of Interior, National Park development. ThereIS are several other $100,000 nonresidential. Service forms of technical assistance, Assistance: Contact: advisory service, and counseling Community Planning and Development Use of property, facilities and provided by the National Park equipment Office of Urban Rehabihtation Service regarding historic properties. Department of Housing and Urban Eligibility: Range: Development State and local governments $48,000-$683,000 451 7th Street, SW information:Purpose: Washington, D.C. 20410 Contact: To transfer surplus federal real (202) 755-0367 Associate Director, Cultural Re- property for public parks and sources recreation, and historic monument National Park Service use. Real property includes land as 15.605 Department of the Interior well as other items. The General Washington, DC 20240 Services Administration is the Sport Fish Restoration (202) 343-7625 (Dingell-Johnson Program) determining agency of "surplus." Department of Interior, U.S. Fish andcurrent Range: Wildlife Service PUBLICATION15.916 N/A Contact: Assistance: Outdoor Recreation— Formula grants. Division of Recreation Resource Assistance Acquisition, Development, National Park Service Eligibility: most and Planning (Land and Water Department of Interior State fish and wildlife agencies may P.O. Box 37127 apply on behalf of local entities. Conservation Fund Grants) THIS Department of Interior, National Park Washington, D.C. 20013-7127 Purpose: Service (202) 343-3776 To support projects designed to restore andFor manage sport fish Assistance: populations for the preservation and Cost-Sharing Grants (50 percent) improvement of sport fishing and Eligibility: related uses. Fishhttp://extension.oregonstate.edu/catalog ladders, hatcheries, State agency responsible for the public fishing lakes, land acquisition, statewide Comprehensive Outdoor and access to fishing ground are all Recreation Plan. (Application may be eligible uses. Law enforcement and on behalf of other interested parties.) public relations are excluded.

220 Waterfront Revitalization for Small Cities 15.919 20.214 (No listing) Urban Park and Recreation Highway Beautification— Public Land for Recreation, Recovery Program Control of Outdoor Public Purposes and Historic Department of Interior, National Park Advertising and Control of Monuments Service Junkyards Interior Department, Bureau of Land Assistance: Department of Transportation, Management Cost-Sharing Grants (matching). Federal Highway Administration Assistance: Eligibility: Assistance: Sale, exchange or donation of federal Cities and counties, based on eco- Project Grants (75 percent) property or goods. nomic and recreational need. Eligibility: Eligibility: Purpose: See 20.205 State and local governments and To plan, rehabilitate, and develop Purpose: nonprofit organizations local park and recreation systems. Three To beautify highways and their Purpose: types of grants are available: rehab- vicinities, and control the visibility of To permitDATE. available public land to be ilitation, innovation, and recovery. junkyards and outdoor advertising leased or acquired for varied public Range: adjacent to interstate and federal-aid purposes, including health, educa- $8,438-$5,250,000 primary highway systems. OFtional, recreation, and monuments. Contact: Range: Range: National Park Service N/A Not available. Division of Recreation Resource Assistance Contact: Contact: Department of Interior Office of Right of Way Bureau of Land Management P.O. Box 37127 Federal Highway Administration Department of the Interior Washington, D.C. 20013-7127 400 7th Street, SW OUT Washington, DC 20240 (202) 343-3700 Washington, D.C. 20590 (202) 366-2026 IS 45.001 20.205 20.801 Promotion of the Arts— Highway Planning and Design Arts Construction (Fed-Aid Development and Promotion National Endowment for the Arts Highway Program) of Ports and Intermodal Assistance: Department of Transportation, Transportation (Port and Project grants and direct payment for Federal Highway Administration Intermodal Development)information: specified uses. Assistance: Department of Transportation, Eligibility: Formula grant, project grants. Maritime Administration State and local governments, non- Eligibility: Assistance: profit organizations. State highway agencies Project grants, advisory service, Purpose: Purpose: counseling, technical information To promote excellence in design by To plan, design, repair, improve (not Eligibility: funding design activities including maintain), highways, roads, and currentState and local government agencies architecture and urban design. streets in urban systems.PUBLICATION Eligible pro- (including port authorities) Range: jects include roadside beautification, $3,000-$350,000 bicycle paths, walkways, and parking. Purpose: To promote and plan the development Contact: Range: and utilization of ports and port Director Design Arts Program $39,400,000-$991,218/000 facilities, and intermodal National Endowment for the Arts Contact: most transportation. 1100 Pennsylvania Avenue NW Office THISof Engineering Range: Washington, DC 20506 Federal Highway Administration N/A (202) 682-5437 Department of Transportation Contact: 400 7th St., SWFor Office of Port and Intermodal Development Washington, DC 20590 Maritime Administration (202) 366-4853 http://extension.oregonstate.edu/catalogDepartment of Transportation Washington, DC 20590 (202) 366^357

Waterfront Revitalization for Small Cities 111 59.003 Graham Foundation for Loans for Small Businesses Private Foundation Advanced Studies in the Fine (Business Loans Section) Arts Small Business Administration (SBA) Programs 4 West Burton Place Chicago, IL 60610 Assistance: Many corporate and philanthropic (312) 787-^071 Direct loans, guaranteed and insured foundations provide grants and loans, advisory service and counseling. matching funds to a wide variety of Assistance: Grants Eligibility: community programs. Some of the Persons or businesses with low better-known programs appropriate Amounts: incomes, or located in high- for waterfront projects, identified as $1,000 - $10,000 unemployment areas, and unable to either "Unrestricted" or "Restricted obtain financing on reasonable terms. in geographic locations," are Usted here. Communities can investigate National Endowment for the Purpose: companies and foundations in their Arts To provide loans to small businesses states that concentrate on giving to DesignDATE. Arts Program owned by low-income persons or communities and agencies near their 1100 Pennsylvania Ave., NW located in areas of high unemploy- own facilities. Listed below are Washington, D.C. 20506 ment. The SBA has many other speciahzed programs that often can (202) 682-5437 programs to issue loans or other provide matching grant funds for OF forms of assistance similar to this. Assistance: specific projects. One year grants, usually matching Range: The categories of giving for these Direct loan: $150,000 — Guaranteed Amounts: programs are also Usted. Note that $5,000 - $40,000 loan: $500,000 many programs support historical Contact: preservation and culturalOUT Office of Business Loans organizations, as well as general National Trust for Historic Small Business Administration community development. Sources of Preservation 1441 L St., NW Information on AssistanceIS on provides 1785 Massachusetts Ave., NW Washington, DC 20416 additional resources. Washington, D.C. 20036 (202) 653-6470 Note the following key points (202) 673^000 when applying for foundation grants: Assistance: • Many foundations have no Matching grants, revolving loans, (No listing) permanent staff to answer phone in- funds for technical assistance Recreation-Technical quiries. One good approach may be to send a well-writteninformation: letter describ- Amounts: Assistance ing your project and its anticipated Grants: $5,000 - $50,000 Department of Interior, National Park budget. Loans: Service • It may be useful to identify Up to $100,000 Assistance: members of the foundation's board of Technical Assistance directors and contact them directly. Eligibility: • "Leveraging" more than one Mott (Charles Stewart) States and political subdivisions, and source of funding in a grant request Foundation nonprofit organizations. currentshows your organization's creativity 1200 Mott Foundation Building Purpose: PUBLICATIONin putting together a financial pack- Flint, MI 48502 To provide ports with technical age. (313)238-5651 assistance for developing trail and Assistance: river corridor improvements. Grants Brochures describingmost services are Amounts: available from the Division of Recrea- Unrestricted Sources $10,000 - $150,000 tionTHIS Resource Development. Ford Foundation Range: Standard Oil Company N/A 320 East 43rd St. For New York, NY 10017 Corporate Contributions and Com- Contact: (212) 573-5000 munity Affairs Local offices of National Park Service http://extension.oregonstate.edu/catalogAssistance: 200 Public Service Square 35-A Grants (216) 586-8621 Amounts: Assistance: $1,500 - $280,000 Grants Amounts: $1,000-$50,000

222 Waterfront Revitalization for Small Cities Restricted by Geographic Deere (John) Foundation Community Development John Deere Road Ford Foundation Location Moline, IL 61265 Monsanto Fund Allstate Foundation (309) 752^137 Mott (Charles Stewart) Foundation Allstate Plaza, F-3 Assistance: Northbrook, IL 60062 Grants Weyerhaeuser Foundation (312) 291-5502 Amounts: Assistance: $500 -$10,000 Cultural Development Grants Note: (Arts and Recreations) Primarily sponsors programs in areas Amounts: Allstate Foundation $100-$35,000 with company facihties American Natural Resources Note: Company Emphasis on Chicago-area programs Monsanto Fund Atlantic Richfield Foundation 800 North Lindbergh Blvd. St. Louis, MO 63167 Deere FoundationDATE. American Natural Resources (314) 694-4391 Davis Foundation Company Assistance: Monsanto Fund ANR Community Investments Grants Mott (Charles Stewart) Foundation Program OF One Woodward Ave. Amounts: Philhps Foundation Detroit, MI 48226 $100 - $30,000 Weyerhaeuser Foundation (313) 496-3745 Note: Principally locations with company Assistance: Employment Generation Grants and scholarships facihties are eligible; also nationalOUT nonprofit organizations Atlantic Richfield Foundation Amounts: No information Ford Foundation Note: Phillips (Ellis L.)IS Foundation Standard Oil Company Grants primarily in locations with 13 Dartmouth College Highway Weyerhaeuser Foundation affiliations Lyme, NH 03768 (603) 795-2790 Historic Preservation Atlantic Richfield Foundation Assistance: Grants Davis Foundation 515 South Flower St. Deere Foundation Los Angeles, CA 90071 Amounts: information: National Endowment for the Arts (213) 486-3342 $1,500 - $10,000 Assistance: Note: National Trust for Historic Preservation Grants and matching gifts Preference to Northeast U.S. Amounts: Philhps Foundation $1,000 - $350,000 Weyerhaeuser Company Note: Foundation Land Use and Resource Tax-exempt, nonprofit organizations currentTacoma, WA 98477 Management eligible, largely in areas with major PUBLICATION(206)924-3157 American Natural Resources company facihties. Assistance: Company Grants Atlantic Richfield Foundation Davis (Edwin W. and Amounts: $1,000 - $5000 Ford Foundation Catherine M.) Foundationmost Note: Standard Oil Company 2100 FirstTHIS National Bank Bldg. Concentrates on areas with facihties, Weyerhaeuser Foundation St. Paul, MN 55101 including the Pacific Northwest (612) 224-5452 Assistance: For Sources of Information Grants Foundation Award on Assistance Amounts: http://extension.oregonstate.edu/catalogCategories Good places to begin seeking $5,000 - $20,000 information on federal, state, and Note: Architecture and Landscape local assistance are: More than half of sponsored Design • State universities, including staff programs are in Minnesota. and libraries Graham Foundation • Extension services National Endowment for the Arts

Waterfront Revitalization for Small Cities 113 • State departments of economic U.S. Department of Commerce, Marquis Professional Publications, or community development National Oceanic and Atmospheric Annual Register of Grant Support, • Regional offices of federal Administration, Urban Waterfront 18th edition, 1984. agencies Revitalization—Federal Assistance. Nonrepayable support from • Councils of government (Washington, D.C: 1983). Available agencies, public and private founda- • Elected officials free from NOAA, 3300 Whitehaven tions, corporations, community • Public libraries, including interli- St., NW, Washington, DC. 20235 trusts, unions, associations, and brary loan services Updates many of the waterfront- special interest organizations. Covers • Professional "grantsmanship" specific programs listed in earher in-service training, competitions, consultants Office of Coastal Zone Management awards, and equipment grants. pubhcations, although many pro- Subject and geographical indexes are The following is a list of helpful grams described also have undergone included. references. changes or been eliminated. Public Management Institute, The U.S. Government Printing Office, Directory of Corporate Philanthropy: Government Assistance Catalog of Federal Domestic CorporateDATE. 500,1st ed., 1980. Sources Assistance, (Washington, D.C: U.S. Provides information on corp- Government Printing Office, 1988), orate gift giving of top businesses in 1200+ pages. Available from Superin- the U.S. California Coastal Conservancy, tendent of Documents, U.S. Govern- OF Catalog of Government Assistance ment Printing Office, Washington, Research Foundation of the State for Waterfront Restoration. (Califor- D.C. 20402 or local U.S. Government University of New York, Sponsored nia State Coastal Conservancy, 1985) bookstores and libraries. Updated Programs Information Network Appeared in California Waterfront Age, each June. Approximately $40. (SPIN). Vol. l,No. 1. A compendium of currentlyOUT Service available at public and Contact: California Waterfront available federal programs. The university libraries. This computer- Age, 1330 Broadway, Suite 1100, CFDA Usts every grant program, ized network sponsored by SUNY Oakland, CA 94612 although individual agencies should allows database searches of some This listing covers both federal and IS be contacted for specific information. federal and many private founda- California State programs (grants, Useful cross-reference for older tions. Searches on user-identified key loans and loan guarantees). Updated program Usts (especially to determine words are available. Listings include: information often appears in Califor- if funds are still available). information on programs, contacts, nia Waterfront Age. Somewhat difficult to track and award amounts. categories of programs in this Usting Dumouchel, J. Robert. Government (see Dumouchel,information: J. Robert, Govern- Assistance Almanac. ment Assistance Almanac). A compu- Grantsmanship (Washington, D.C: Foggy Bottom terized version of the CFDA, Federal Publications, 1985), 600 pages. Program Retrieval System, is available Organizations Available from Foggy Bottom Publi- through many state universities and The Foundation Center cations, Box 57150, West End Station, extension services. Washington, D.C. 20037. $19.95 + 888 Seventh Ave. $3.50 shipping. Contact pubUsher for New York, NY 10019 information on updates. An excellent resource for informa- A private publication that reducescurrent tion on foundation funding. Founda- the information inPUBLICATION the Catalogue of Private Sources of tions are categorized by special Federal Domestic Assistance to an Assistance interest and information is available easily-usable format. Contains index on microfiche. Regional collections and brief summary of the process of Note: The following publications developed by the center for 43 states applying for federal mostassistance pro- are updated regularly, and the dates are available at many public libraries. grams.THIS listed below may change. The Grantsmanship Center Oldham, S.G., and others, A Guide Foundation Center, The Founda- 1015 Olympic Blvd. to Tax-Advantaged Rehabilitation. tion Directory, (9th ed. 1983 plus For Los Angeles, CA 90015 (Washington, D.C: 1986), 19 pages. supplement, 1984). This center publishes many useful Available from National Trust for Information on private grant- publications on the grants-funding Historic Preservation,http://extension.oregonstate.edu/catalog 1785 Massa- making foundations in the U.S.— chusetts Ave., NW, Washington, D.C. process and conducts workshops nongovernmental, nonprofit organi- across the country. It also has devel- 20036. $3.50 zations. Arranged by state and name Explains rehabilitation tax credits oped a thorough grant proposal of foundation. Includes indexes by format. and what types of projects, buildings, foundation name and field of interest. and expenses qualify.

224 Waterfront Revitalization for Small Cities The references and resources Breen, Ann and Dick Rigby, eds.. below feature mostly larger commu- Urban Waterfront Resource nities and highlight some of the Material. (Washington, D.C.: The projects that first showed waterfronts Waterfront Press,1988) Available are viable redevelopment areas. More from The Waterfront Center (see importantly, they give overviews of below). $24.95 what waterfront revitalization is— This bibliography is a compilation and how maritime industries and of selected urban-waterfront refer- Appendix C trade on the nation's waterways have ences cited in Waterfront World, Vols. shaped commerce and culture. 1 through 7, January 1982 to Decem- ber 1988. It summarizes reviews of References and publications and other materials reviewed in the magazine, and is Resources categorized by topics such as access, art, working waterfronts, festivals, and maritimeDATE. and historic preservation.

OFButtenwieser, Ann L., Manhattan Water-bound: Planning and Developing Manhattan's Water- front from the Seventeenth Cen- tury to the Present. (New York: New York University Press: 1987) OUT pp. 243. Although this account follows the IS commercial and private maritime development of New York City, it is an interesting historical view of changing waterfronts, including the role landfills have played in changing the land-scape and character of port cities.

information:Buttenwieser, Ann L., Waterfronts Alive: Tips for New York from Revitalized Shorelines Across General References America. (New York: 1986) 84 pages with photographs. Available Breen, Ann and Dick Rigby, Caution: from: N.Y.C. Dept. of Planning, Working Waterfront: The Impact Waterfront Revitalization currentof Change on Marine Enterprises. Program, 2 Lafayette St., New (Washington, D.C.: The Water- York, NY 10007. Tel: (202) 566- PUBLICATIONfront Press, 1985) 82 pages. Avail- 7376, $4.50. able from the Waterfront Center Prepared for the New York City (see below). $24.95 Department of Planning, this report This guide stresses the importance has good ideas for other communities most of small marine enterprises as an as well. Case studies from U.S. cities THIS economic force in communities, and and a literature review are included. also highlights the need for good Topics covered are waterborne public access (physical, visual, and transportation, floating structures, For interpretive) to working waterfronts. marinas, access issues, pier design, The case studies are of Seattle, Miami, marketing waterfronts, and main- Sausalito, and Portland, Maine. The taining a "working waterfront." http://extension.oregonstate.edu/catalogvolume provides both professional planners and interested citizens a look at what is worth preserving on waterfronts and how to incorporate new ideas to improve them.

Waterfront Revitalization for Small Cities 115 Clark, John, Claudia Wilson, and at similar projects. Sections on Muretta, Peri, Marc Hershman, and Gordon L. Binder, Small Seaports: tourism, financing, waterfront parks, Robert Goodwin, Waterfront Revitalizing through Conserving marinas, and working waterfronts are Revitalization: Plans and Projects Cultural Resources. (Washington, covered. Case studies include Port in Six Washington Cities. WSG 81- D.C.: The Conservation Angeles, South Bend, Ilwaco, 4 (Seattle. WA: University of Foundation, 1979) 67 pages. Poulsbo, and Kirkland in Washing- Washington, 1981). 37 pages. The small seaports described in ton, and Campbell River in British Available from Washington Sea this volume are in the Northeast and Columbia. The list of attendees in the Grant Pubhcations, 3716 Brooklyn mid-Atlantic states, but the informa- appendix provides useful contacts for Ave. NE, Seattle, WA 98105, $2.50. tion on how they are being revived further information. Urban waterfront revitalization in can be useful to all coastal communi- several large (Seattle, Everett, and ties. Commercial fishing fleets, Heritage Conservation and Recrea- Tacoma) and smaller (Olympia, historic preservation, tourism, and tion Services, U.S. Department of Bellingham, and Port Angeles) commercial development are all the Interior, Urban Waterfront Washington communities are de- covered. The book contains excellent Revitalization: The Role of tailed. Shows how changing econo- photos. A questionnaire used in Recreation and Heritage. Water mies alteredDATE. the uses of urban compiling the book is included and Resources Section, Heritage waterfronts in these communities, as gives useful ideas for communities Conservation and Recreation well as the effect of shorehne-man- interested in polling local residents Service (Washington, D.C: Dept of agement poUces. and civic groups on their ideas for the the Interior), 1980. OF waterfront. Volume One, "Key Factors, Needs National Research Council, Urban and Goals," provides background Waterfront Lands. National Cowry, A. Breen, R. Kaye, R. information on national policy Research Council Committee on O'Conner and R. Rigby, Improving regarding waterfront revitahzation Urban Waterfront Lands. National Your Waterfront: A Practical and important "hands on"OUT advice on Academy of Sciences (Washington, Guide. (Washington, D.C.: NOAA, how to design a project, including D.C: 1980). 1980). Available free from NOAA, land acquisition techniques. Although economic conditions and Office of Ocean and Coastal Volume Two, "CaseIS Studies of federal policies on urban waterfronts Resources Management, 1825 Seventeen Urban Waterfront have changed since this volume was Connecticut Ave. NW, Washing- Projects," presents case-study find- written, it still provides valuable ton, D.C. 20235. Tel: (202) 673-5115. ings of small, medium, and large information on how environmental Although focussing on larger city waterfront projects, both rec- issues, social forces, and economic waterfronts, this publication and its reation-only ones and mixed-use change have shaped the waterfront. case studies emphasize "team build- developments. The case studies also The case studies are of metropoh- ing" among citizens, private develop- give detailed fundinginformation: information for tan waterfronts (Baltimore, San Fran- ers, and public officials during the these projects, and though somewhat cisco, and New York City) but course of waterfront projects. Access dated, it may offer useful ideas for chapters on recreational use of the and historic preservation, as well as project funding. waterfront, and on participation from financing, land acquisition citizen's groups in planning techniques are covered. Lucy, Jon, Ann Breen and Dick Rigby, decisions, can apply anywhere. "Urban Waterfronts: Positive Goodwin, Robert, ed., Waterfront Directions, New Problems" in Petrillo, Joseph E. and Peter Grenell, Revitalization for Smaller Com-current Proceedings of the National Outdoor ed.. The Urban Edge: Where the munities. ProceedingsPUBLICATION of a confer- Recreation Trends Symposium II City Meets the Sea. The California ence, April 23-24,1987, Ocean February 24-27,1985, South State Coastal Conservancy (in Shores, Washington (Seattle, WA: Carolina, Vol. II, p.66-80. cooperation with William Washington Sea Grant Marine This article from a symposium on Kaufmann, Inc., Los Altos, CA, Advisory Servicesmost Pubhcations, recreation trends (VSC-86- 48R) is 1985), 108 pages. University of Washington. WSG- available from Sea Grant This nicely illustrated volume WOTHIS 88-1) pp. 207. Available from Pubhcations, Sea Grant Marine Advi- includes an overview of international Washington Sea Grant Pubhca- sory Services, Virginia Institute of waterfronts, plus chapters on coastal tions, 3716For Brooklyn Ave., NE, Marine Science, Gloucester Point, Va. regulations (focusing on California Seattle, WA 98105, $12.00. 23602 ($2.00 per copy postpaid). case studies), and financing water- These proceedings present various front restoration. The Coastal Conser- ways in which Pacifichttp://extension.oregonstate.edu/catalog Northwest vancy advocates awareness of all communities have enhanced their environmental changes that might waterfronts. The processes followed, occur with redevelopment—not just the problems encountered, and the successes that resulted are especially irustructive for communities looking

226 Waterfront Revitalization for Small Cities those under regulation. The chapter The Waterfront Center Urban Waterfronts, '87: Water: on citizen involvement in planning 1536 44th Street, NW The Ultimate Amenity. Ann Breen and design workshops is especially Washington, D.C. 20007 and Dick Rigby, eds. 1988. 96 helpful. (202) 337-0356 pages with photographs. This publishing and consulting Portland, Oregon is the featured Vance, Mary. Waterfronts: A Bibliog- firm, codirected by Ann Breen and city. Festival organization, dock raphy. (Monticello, IL: 1987) 26 Dick Rigby, is a clearinghouse for in- systems, design details, and regula- typed pages. Public Administra- formation and ideas on waterfront re- tory developments are covered. tion Series Bibhography No. P2109. vitalization. They host national con- Available from Vance Bibliogra- ferences on waterfront topics and phies, P.O. Box 229, Monticello, IL publish these conference proceedings, 61856, $7.50. as well as several other excellent pub- Topical References and This bibliography lists articles on lications, including Waterfront World, waterfronts in popular, as well as a bimonthly newsletter that surveys Resources specialized magazines, on design and waterfronts and waterfront issues architecture. Most useful for planners around the United States ($28/year). Access/DesignDATE. Standards and architects. The proceedings of most of the previous conferences are available from American Institute of Architects, Wrenn, Douglas M., with John the center ($24.95 each, $19.95 for OFHandbook of Architectural Design A.Casazza and J. Eric Smart, members) These volumes contain Competitions (ALA, Washington, Urban Waterfront Development photos and illustrations, as well as D.C: 1981), 33 pages. Available (Washington, D.C.: The Urban lists of registrants and references. from: American Institute of Land Institute, 1983), 219 pages. Proceedings in print are: Architects, 1735 New York Ave. $34. Contact ULI, 1090 Vermont NW, Washington, D.C. 20006. $10. Ave., NW, Washington, D.C. 20005 Urban Waterfronts '84:OUT Toward Discusses several types of Although the focus is on urban New Horizons. Ann Breen and competitions and the roles of spon- ports and riverfronts, this book is a Dick Rigby, eds. 1985.100 pages sors, professional advisors, and valuable overview of the trans- with illustrations.IS juries. The appendices include a portation, cultural and economic Topics include economic realities planning guide, a cost estimation importance of these areas; and how on today's waterfront, civic art and guide, standard forms of agreement, redevelopment efforts should view water transport. There also are case and a bibliography. these roles. This readable volume was studies of the London Docklands written for planners and architects, development, Sheboygan, Wisconsin, Denman, Anne Smith, ed.. Design but others will gain an insight into Cambridge, Maryland, and Biloxi, Resource Book for Small the language and ideas of waterfront Mississippi. information:Communities (Small Town design and planning. Includes a good Institute, Ellensburg, WA: 1981), section on development opportuni- Urban Waterfronts '85: Water Small Town Vol. 12, No. 3, Special ties and processes. Makes a Difference. Ann Breen Issue. 96 pages. Available from and Dick Rigby, eds. 1986.134 Small Town Institute, P.O. Box 517, pages with photographs. Ellensburg, WA 98926. $10. General Resources Subjects covered include citizen Resources, ideas, and contacts for waterfront initiatives, natural areas small-community design projects, California State Coastal currenton waterfronts, water sports activi- including a few waterfront case Conservancy PUBLICATIONties, ports and waterfront develop- studies from Bellingham and Port 1330 Broadway, Suite 1100 ment, tourism, and the role of water- Townsend, WA. Oakland, CA 94612 front festivals and celebrations. (415) 464-1015 Mikkelsen, Thomas A. and Donald B. The conservancy publishesmost a quar- Urban Waterfronts, '86: Develop- Neuwirth, Public Beaches: An terly magazine, California Waterfront ing Diversity. Ann Breen and Dick Owner's Manual. (Oakland, CA: Age, andTHIS several other publications Rigby, eds. 1987.100 pages with 1987), 153 pages with photos and covering a variety of subjects related photographs. illustrations. Available at no cost to waterfrontFor revitalization and Urban riverfront revitalization is a from: California State Coastal restoration. Many articles focus on major theme in this volume, includ- Conservancy, 1330 Broadway, the natural and cultural histories of ing river-corridor planning, innova- Suite 1100, Oakland, CA 94612. waterfront and coastalhttp://extension.oregonstate.edu/catalog areas in tive riverfront designs, and river This guide focuses on rural and California and other parts of the recreation. Vancouver's Granville suburban beach areas and access to country. Island development is highlighted, them, but the chapter on design along with Long Beach, San Antonio, standards is an excellent overview of Montreal, and Denver. designing trails, walkways, bikeways,

Waterfront Revitalization for Small Cities 117 boardwalks, and other natural more. Cites books, periodicals, A technical, but readable, guide to accessways. A chapter on urban bibliographies, government publica- design standards for pedestrians by a access includes ideas for parking tions, seminar and conference re- Seattle landscape architect. Many areas, with case studies from Morro ports, and dissertations. photos and illustrations use water- Bay, Long Beach, and San Diego. front access examples. San Francisco Bay Conservation and Monmouth County Planning Board, Development Commission, Public Bayshore Waterfront Access Plan. Access Design Guidelines, (San Port and Marina (Trust for Public Land, New York, Francisco, CA: 1985). Contact: San NY: 1987), 86 pages with photos Francisco Bay Conservation and Development and maps. Contact: The Trust for Development Commission, 30 Van Public Land, 666 Broadway, New Ness Ave., San Francisco, CA Armstrong, A. and others. The York, NY 10012-2317. 94102-6080.12 pages with Relationship of Port Development This is a plan for pubhc access to illustrations. and Urban Revitalization. The the urban waterfronts of several New South Carolina Sea Grant Jersey communities. It is designed to Scott, James W., An Evaluation of Consortium,DATE. Technical Report link open spaces and recreational Public Access to Washington's No. 2,1981.SC-SG-81-2 areas along the waterfront. Shorelines (Department of Ecology, Olympia, WA: 1983), 62 Barnum, Dick and Craig Holland, "Recreational Boating and Moor- National Endowment of the Arts, pages with photos and illustra- OF Design Competition Manual. (The tions. Available at no charge from: age," in Waterfront Revitalization Center for Environmental Design Washington State Department of for Smaller Communities, Robert and Education, 219 Concord Ave., Ecology, Shorelands Division MS/ Goodwin, Ed. (See Part I for reference) Cambridge, MA 02138, Tel: (617) PV-11, Olympia, WA 98504, Tel: 491-3763 (206) 459-6282. OUT Hershman, Marc J. Ed., Urban and Three volumes from the NEA Evaluates shoreline access status in Washington since passage of the Harbor Management: Responding Center for Environmental Design are to Change Along U.S. Waterfronts available for information on design Shoreline ManagementIS Act of 1971. Also discusses land control tech- (New York: Taylor and Francis, standards and competitions: Vol. 1 - 1988), 354 pages. Available from Design Competition Manual 1,1980, niques for gaining public access, and design criteria for accessways. Very Taylor and Francis, 3 East 44th St., $5.; Vol. 2 - Design Competition New York, NY 10017. Manual II: On Site Charette, 1982, $5.; useful evaluation of vandalism and Vol. 3 - Design Competition Manual liability issue. A topical treatment of ports and III: A Guide for Sponsors, 1984, $4. port management. Covers harbor Tacoma, City information:of, Ruston Way Plan: management, historical perspectives Portland Department of Planning and Design and Development Guide- on the pubhc port, seaport character Urban Development, Portland lines for Ruston Way Waterfront and pubhc-private tensions, federal Waterfront Core: Public Access Revitalization (City of Tacoma port policy, fishing ports, small-boat Design Guidelines. (City of Port- Planning Dept., Tacoma, WA: marinas, strategic planning for ports, land, Portland, ME: 1985) Avail- 1981), 71 pages with illustrations. and retaining maritime industries. able from Department of Planning Available from: City of Tacoma and Urban Development, Portland Planning Dept., 740 St. Helens Marr, Paul D. and others, Port City Hall, Room 211, 389 Congresscurrent Ave., 9th Floor, Tacoma, WA Planning. Council of Planning St., Portland, ME 04101. $2. 98402. Librarians, CPL Bibliography No. PUBLICATION 194 and 195, June 1987. Contactlocal Design guidelines adopted for the This guide describes design policies and standards for future de- planning and architecture libraries land development plan of Portland, for this series of bibliographies. Maine, highlighting waterfront public velopment of Ruston Way, Tacoma's two-mile section of urban waterfront access. Maps, drawings, and lists are McCrorie, Bob, "A Port's Role in useful for planners andmost developers. with both city property and mixed- THIS use development. Sections on water- Harborwide Planning," in Water- front access, pubhc fishing pier, front Revitalization for Smaller Powell, Antoinette Paris, Bibliogra- Communities, Robert Goodwin, phy of Landscape Architecture, views, structures, pedestrian circula- For tion, lighting, signs, and landscaping. ed. ("General References" for Environmental Design and Plan- complete citation and ordering ning. (Oryx Press, Phoenix, AZ: information). 1987), 356 pages. Untermann, Richard K., Accommo- http://extension.oregonstate.edu/catalogdating the Pedestrian: Adapting A comprehensive bibhography National Marine Manufacturers with more than 8,000 references on Towns and Neighborhoods for Walking and Bicycling (Van Association, Marinas: Recommen- subjects covering landscaping, envi- dations for Design, Construction ronmental ecology, agriculture, water Nostrand Reinhold Co., New York, NY: 1984). and Management Vol. I and II. and land use, regional planning, and (NMMA, Chicago, IL: 1984)

118 Waterfront Revitalization for Small Cities Available from: National Marine A compilation of selected readings Manufacturers Association, 410 N. Public-Private from experts in the field of environ- Michigan Ave., Chicago, IL 60611 Joint Ventures mental interpretation. $35 for Volume I. Fosler, R.Scott and Renee A.Berger, Kuehner, Richard, Interpretive Design U.S. Department of Commerce, Port Public-Private Partnerships in Guidelines. 1984. U. S. Fish and Economic Impact Kit. (Depart- American Cities (Lexington Books, Wildlife Service. ment of Commerce, Maritime D.Heath and Co., Lexington, MA: An excellent guide to developing Administration: Washington, D.C.: 1982), 363 pages. graphics and text for exhibits and 1979), 133 pages. Describes local initiatives for har- brochures. Available from U.S. Fish nessing private developers to help and Wildlife Service, 500 N.E. Wilson, Keith, Handbook for the renew urban downtown areas. Multnomah Street, Portland, OR Location, Design, Construction, Portland, Oregon, and Baltimore are 97232. Tel: 503/231-6176. Operation and Maintenance of two of the waterfront areas used as Boat Launching Facilities, March case studies. Paskowski, Michael, Interpretive 1989. Prepared for and available PlanningDATE. Handbook. 1983. National from: States Organization for "Innovative Implementation Tech- Park Service. Boating Access, P.O. Box 25655, niques - Integration Public and An excellent guide to planning and Washington, D.C. 20007. Private Resources," in Urban media from the National Park Waterfronts, '84 (See "General OFService, Harpers Ferry Center, References" part of this appendix Harpers Ferry, WV 25425. Citizen Involvement for complete citation and ordering Techniques information). Sharpe, Grant W., Ed., Interpreting the Environment, 2nd edition. 1982. Ray, Barbara, Public-Private Partner- Alterman, R., "Planning for Public OUT John Wiley and Sons, New York, ship: A Bibliography. Public Ad- 694 pages. Participation: The Design of Imple- ministration Series No. P1894. mentable Strategies," Environment Covers all aspects of interpreta- (Vance, Monticello, IL: 1986), 6 & Planning, 1982,9(3):295-313. IS tion, including planning, media typed pages. Available from Vance selection, techniques, supporting Bibliographies, P.O. Box 229, activities, education, and research. Butler, L. M. and R. E. Howell, Coping Monticello, IL 61856, with Growth: Community Needs Tel: (217) 762-3831 $3. Assessment Techniques. (Western Zube, Ervin, Visitor Center Design Rural Development Center, Evaluation. 1976. IME Report No. Oregon State University, WREP 44, R-76-5. CorvaUis, Oregon:1980). Waterfrontinformation: Interpretation A technical study of National Park Service visitor centers, useful to Glass, J.T., "Citizen Participation Good, J. W. and D. E. M. Bucy, Water- communities planning major visitor Planning: The Relationship front Interpretation: A Community centers for their waterfront. Write to Between Objectives and Tech- Planning Guide, EM 8416 (in Ervin Zube, Director, Institute for niques." American Planning Associa- process, anticipated delivery Man and Environment, University of tion Journal, 1979,45(2):180-189. mid-1990). Extension Service, Massachusetts, Amherst, MA. Oregon State University, CorvaUis, Howell, R.E., M.E. Olsen, and D. currentOregon. AvaUable from Publica- Inventories and Surveys Olsen, DesigningPUBLICATION a Citizen Involve- tions Orders, Agricultural Communications, OSU, ment Program: A Guidebook for Garnham, Harry Launce, Maintaining Involving Citizens in the Resolution Administrative Services 422, CorvaUis, OR 97331-2119. the Spirit of Place: A Process for the of Environmental Disputes. (Western Preservation of Town Character. Rural Developmentmost Center, A comprehensive planning guide (PDA PubUshers Corporation, Oregon State University: CorvaUis, for communities interested in devel- Mesa, AZ: 1985), 156 pages. Oregon:THIS 1987). oping interpretive exhibits and other resources on waterfront history, Defines a process of preserving the Northeastern Illinois Planning culture and environment. uniqueness of smaU towns. Discusses the changes leading to a loss of Commission,For "The Delphi Process character, and how a town would and the Nominal Group Tech- Hanna, John W., Interpretive Skills for answer the question, "What's special nique." In Patriciahttp://extension.oregonstate.edu/catalog Marshall (ed.). Environmental Communicators. 1975. Citizen Participation Certification for Department of Recreation and about our town?" Presents a five-step Community Development. (National Parks, Texas A&M University, inventory and survey process, with Association of Housing and College Station, TX 77843. excellent diagrams, flow charts, maps Redevelopment Officials: Wash- and photographs. ington, D.C: 1977).

Waterfront Revitalization for Small Cities 119 Rosenbaum, Lisa T. and William W. A reference document (though Wrenn, Douglas M., with John A. Seifert, Suggestions for the Revitali- somewhat dated) of how coastal zone Casazza and J. Eric Smart, Urban zation of the Village ofHyannis (MIT, management efforts and recreation Waterfront Development (Washing- Cambridge, MA: 1979). Available opportunities can work together. ton, DC: The Urban Land from: MIT Sea Grant College Includes information on inventories Institute, 1983), 219 pages. (See Program, Massachusetts Institute of sites and usage surveys. "General References" for descrip- of Technology, Cambridge, MA. tion and ordering information.) MIT -T- 79-011C2.165 pages. Leedy, D.L, T.M. Franklin and R.M. Pubhshed as a report from a Maestro, Planning for Urban Fishing systems engineering workshop that and Waterfront Recreation (Fish and Waterfront Business inventoried the physical and eco- Wildlife Service, U.S. Department nomic assets of the Cape Cod resort of the Interior, Washington, D.C: Development town, Hyannis. Thorough analysis of 1981), 106 pages. Available from: economic impacts of tourism and Urban Wildlife Research Center, Berk, Emanuel, Downtown Improve- fishing industries, marina develop- Inc., 10921 Trotting Ridge Way, ment Manual (Illinois Department ment, and traffic problems. Columbia, MD 21044, Tel: (301) of LocalDATE. Government Affairs, 596-3311. Chicago: 1976). Available from The For planners and developers inter- American Society of Planning Recreation on the ested in urban recreation opportuni- Officials, 1313 East 60th St., ties, this document covers preserva- OFChicago, IL 60637. Waterfront tion of aquatic areas, urban fishing A comprehensive planning guide projects, and creating new areas for for central business district improve- Breen, Ann and Dick Rigby, Fishing recreation. Good information on ments in a concise, practical format. Piers: What Cities Can Do (The technical assistance sources. Covers topics on downtown traffic, Waterfront Center, Washington, OUT parking, landscape design, historical D.C.: 1986), 88 pages with photos. Seaman Jr., William, "Enhanced preservation, marketing business dis- Available from: The Waterfront Fishing Opportunities for Urban tricts, planning methodologies, and Center, 1536 44th St., Washington, Waterfronts," inIS Urban Waterfront citizen participation. D.C. 20007 $ 19.95 ($15.95 for Management Project, Resource members). Report No. 5 (Florida Dept. of Land Use and Covers recreational fishing piers— Community Affairs, Tallahassee, operation, design, and manage- FL: 1984). Waterfront Zoning ment—for communities or private From a quarterly report from the Brower, David J. and Daniel S. Carol, developers. Florida Department of Community Coastal Zone Management as Land Affairs, which funds the Urban information:Planning. (NPA, Washington, DC: Buckley, Raymond M. and James M. Waterfront Management Project in 1984) Available from: The National Walton, Fishing Piers: Their Design, Florida. Operation and Use, WSG-81-1 Planning Association, 1606 New (Seattle, Washington: University of Hampshire Ave. NW, Washington, Washington, 1981), 29 pages. Land Acquisition D.C. 20009 NPA #205, $6.50. Available from Washington Sea Reviews the impacts of coastal Grant Pubhcations, 3716 Brooklyn Brumback, Barbara C, "Protecting zone legislation on state coastal-zone Ave. NE, Seattle, WA 98105, $2.50current Places: A New Look at Land land use and management. Case PUBLICATIONAcquisition," in California Water- studies of Oregon, North Carolina, Dangermond, Pete, "Waterfront front Age, Vol. 3, No.4, Fall 1987. and New Jersey management plans. Recreation", in California Water- front Age, Vol. 1, No.3, Summer, Washington State Department of Connecticut, State Department of 1985. Ecology, Wetlands Acquisition and Environmental Protection, Coastal most Preservation: A Guide for Landowners Area Management Program, Model Davenport,THIS Russell, "The Use of and Government Agencies, Decem- Municipal Coastal Program. (CAM, Waterfronts for Public and Private ber 1986. 31p. Available from Hartford, CT: 1979) Available Recreation," in Urban Waterfront Washington State Department of from: Coastal Area Management, Lands, NationalFor Academy of Ecology, Shorelands and CZM 71 Capital Ave., Hartford, CT Sciences. (See reference in Part I). Program, Wetlands Section, Mail 06115. Stop PV-11, Olympia, WA 98504. This guide uses the mythical town Ditton, Robert B. andhttp://extension.oregonstate.edu/catalog Mark Stephens, of Old Port as a example of a town Coastal Recreation: A Handbook for Williams, Prentiss, "Transferable embarking on a comprehensive Planners and Managers (NOAA, Development Credits: A Contro- inventory of existing land use and U.S. Dept. of Commerce, Washing- versial Land Use Tool," in recommended zoning changes. The ton, D.C: 1976), Office of Coastal California Waterfront Age, Vol. 3, maps and figures illustrate many Zone Management. No. 3, Spring 1987.

220 Waterfront Revitalization for Small Cities inventory ideas and how to assess ties: Trade Area Analysis/'Thomas A thorough treatment of the coastal resources in light of coastal R. Harris. 1985 ($0.50). design and economic considerations zone management areas. of converting historical buildings or WREP 91, "Assessing, Managing, industrial space for new uses. Many and Mitigating the Impacts of Eco- waterfront buildings used as ex- nomic Dechne: A Community Per- amples. Economic spective." Robert E. Howell and Development Issues Marion T. Bentley. 1986 ($0.75). WREP 92, "RevitaUzing the Small Festivals and Cole, Barbara A. and Meredith Miller, Town Main Street." Edward A. Cook Financing Economic Renewal and Marion T. Bentley. 1986 ($0.75). Waterfront Art Projects. Workbook #9 of the Rocky Mountain Institute's Economic WREP 93, "Population Changes in Azevedo, Margaret, "How to Choose Renewal Program. (Colorado: Local Areas." Annabel K. Cook. Art on the Waterfront," in Rocky Mountain Institute, 1988), 1986 ($1). California Waterfront Age, Vol. 3, 71 pages. Available from: Rocky WREP 94, "A Team Training Model: No. 3,DATE. Summer 1987. Mountain Institute, 1739 Snow- A Regional Approach to Changing mass Creek Rd., Snowmass, CO Lucy, Jon. "Waterfront Festivals: Economic Conditions." Loma 81654, Tel: (303) 927-3851. Michael Butler and Robert O. Catalysts for Maritime Heritage and Waterfront Development" This excellent workbook will assist Coppedge. 1986 ($0.75). OF communities starting an economic 1981. Reprinted copy available for renewal project. Though not specific WREP 96, "Local Government $.25 from: Sea Grant Communica- to waterfronts, it covers funding Cutbacks in Hard Times." George tions Office, Virginia Institute of sources, funding mechanisms, and Goldman and Anthony Nakazawa. Marine Science, Gloucester Point, the basic principles of project financ- 1987 ($0.50). VA 23062. ing. OUT Historic Preservation/ Lucy, Jon and Samuel Baker, Harbor- Easton, Gregory R. "Economics of Adaptive ReuseIS fest '79, Norfolk, Virginia: An Waterfront Development in Analysis of Patrons and Their Smaller Communities", in Expenditures. Special Report No. Waterfront Revitalization for Smaller National Trust for Historic 226 in Applied Marine Science at Preservation, Directory of Maritime Communities, Robert Goodwin, ed. Virginia Institute of Marine Heritage Resources. (National Trust (see Part I for reference). Sciences and Ocean Engineering, for Historic Preservation, This article explains how land College of William and Mary, Washington, D.C.: 1984). Available Gloucester Point, VA 23062. value can be used as a measure of from: Officeinformation: of Maritime Preserva- economic opportunity on the water- tion, National Trust for Historic front. Lucy, Jon A. and Tamara A. Vance, Preservation, 1785 Massachusetts 22nd Urbanna Oyster Festival: Ave. NW, Washington, D.C. 20036, Analysis of Patrons and Expenditures. Richardson, Sarah L. "A Product Life Tel: (202) 673-4127, $10. Cycle Approach to Urban (Virginia Sea Grant Program: 1982) Waterfronts: The Revitalization of A directory of organizations Special Report No. 257 in Applied involved in maritime-heritage issues, Galveston." Coastal Zone Manage- Marine Science at Virginia Institute ment Journal v. 14, No. 1/2,1986. including associations and educa- of Marine Science and Ocean currenttional societies, libraries, maritime Engineering, College of William PUBLICATIONcrafts, and industry organizations. Western Rural Development Center, and Mary, Gloucester Point, VA Hard Times: Communities in Transi- 23062. tion. (Western Regional Extension Oldham, S.G. J.Boyle and S.Ginsberg, A Guide to Tax-Advantaged Rehabili- Program, Corvallis, OR: 1987), (7 Thaler, Ruth E., "Waterfront Festi- tation. (NTHP, Washington, D.C: part series). Availablemost from: vals: A 'Growth Industry'." in 1986), 19 pages with photos. Western Rural Development Waterfront World, Vol. 8, No. 3, THIS Available from: National Trust for Center, Oregon State University, May/June 1989. Historic Preservation, 1785 Massa- Corvallis, OR 97331. This article reports on an array of chusetts Ave. NW, Washington, Tel: (503)For 737-3621. $4.25 for series. waterfront festivals, highlighting D.C. 20036, $3.50. their benefits and problems. Titles in this series are: WREP 89, "Developinghttp://extension.oregonstate.edu/catalog Local Urban Land Institute, Adaptive Reuse: Wood, Marilyn, "Waterfront Celebra- Businesses as Job Providers." Robert Development Economics, Process and tions: New Images for Pleasure O. Coppedge. 1985 ($0.50). Profiles. (Urban Land Institute, and Profit," in Urban Waterfronts, Washington, D.C: 1980) ULI, 1090 '85. (See Part I for reference). WREP 90, "Commercial Sector Vermont Ave. NW, Washington, Development in Rural Communi- D.C. 20005.

Waterfront Revitalization for Small Cities 121 U.S. Department of Housing and How to organize a river Titles in this series are: Urban Development, The Urban conservation program, covering WREP 52, "Helping Small Towns Fair: How Cities Celebrate issues such as water projects pollu- Grow." Robert Coppedge ($0.50). Themselves. (HUD, Government tion and river recreation. Land-use Printing Office, Washington, D.C.: planning tools are detailed. Very WREP 53, "To Grow or not to Grow: 1981), 73 pages. useful resource section with contacts Questions on Economic Develop- ment." Robert Coppedge ($0.50). Case studies of 10 urban water- to federal and nonprofit conservation front fairs (mostly larger cities) —the organizations. WREP 54, "Hiring a Consultant." majority with a waterfront theme. George Gault ($0.50). Planning and management of festi- Festival Resource WREP55, "Identifying Problems and vals are covered. Establishing Objectives." George Organizations Gault ($0.50). The Working Waterfront WREP 56, "Basic Grantsmanship." International Festivals Association George Gault ($0.50). 505 East Colorado Blvd., Suite M-l DATE. Breen, Ann and Dick Rigby, Caution: Pasadena, CA 91101 WREP 57, "Marketing the Unique- Working Waterfront: The Impact of (818) 796-2636 ness of Small Towns." David Hogg and Douglas Dunn ($0.50). Change on Marine Enterprises. A membership organization with a (Washington, D.C.: The Water- quarterly newsletter; IFA conducts OFWREP 58, "Socioeconomic Indica- front Press, 1985), 82 pages (See seminars on marketing and promot- tors for Small Towns." Douglas "General References" for descrip- ing festivals. Dunn and Douglas Cox ($0.50). tion and ordering information). WREP 59, "Community Evaluation National Center for Celebration Gustaitis, Rasa, "Grace Under for Economic Development," Pressure," in California Waterfront 40 Charles Morrow Assoc.OUT George Gault ($0.75). 611 Broadway, Suite 817 Age, Vol 2, No. 4, Fall 1986. New York, NY 10012 Discusses the displacement of (212) 529-4550 IS National Association traditional maritime industries and of Towns and Townships the acquisition of land along the 1522 K St., NW, Suite 730 waterfront. Small Towns/Economic Washington, D.C. 20005 (202) 737-5200 National Trust for Historic Improvement NATT is a nonprofit, membership Preservation, Conserve Neighbor- organization offering a wide variety hoods: Special Issue on Working National Associationinformation: of Towns and of educational services and public- Waterfronts. NTHP, Washington, Townships, Growing Our Own policy support to local government D.C.: 1985), 8 pages with photos. Jobs: A Small Town Guide to officials from more than 13,000 small Available from: National Trust for Creating Jobs Through Agricul- communities in the U.S. It provides Historic Preservation, 1785 Massa- tural Diversification (National technical assistance programs, holds chusetts Ave. NW, Washington, Center for Small Communities, educational conferences and work- D.C. 20036 $2. Washington, D.C: 1987), 60 pages. shops, and develops publications and Covers citizen efforts to retain Available from: National Associa- other resources to help improve the waterfront industries and char-acter.current tion of Small Towns and Town- quality of life for rural people. It Case studies from Portland,PUBLICATION Maine, ships, 1522 K. St., NW, Suite 730, publishes a monthly newsletter. The Seattle, and Sausahto. Washington, D.C. 20005 $5. Reporter, which covers community This excellent guidebook gives and economic development and case studies of 25 U.S. small-town improvements in rural services. Rivers/River economic development projects, and Conservation most covers topics such as new rural The Regeneration Project THIS agricultural enterprises and tourism. 33 E. Minor St. Diamant, R., J.G. Eugster and Emmaus, PA 18098 Western Rural Development Center, (215) 967-5171 C.Duerksen, A Citizen's Guide to Small Town Strategy (Western For A public service project of Rodale River Conservation (Conservation Regional Extension Program, Press, publisher of books, magazines, Foundation, Washington, D.C: Corvalhs, OR: 1982), (8 part series). and newsletters on improving the 1984), 113 pages with maps and Available from: Western Rural http://extension.oregonstate.edu/catalogquality of life. The company also illustrations. Available from: The Development Center, Oregon State Conservation Foundation, 1717 University, Corvalhs, OR 97331, produces information tools that Massachusetts Ave. NW, Washing- Tel: (503) 737-3621. $4. for series enable people to have more self- ton, D.C. 20036. reliant lives and communities. The project has facihtated community re-

222 Waterfront Revitalization for Small Cities generation projects in several small Professional Landscape Architects towns in the U.S. Organizations American Society of Landscape Rocky Mountain Institute Architects 4401 Connecticut Ave., NW Economic Renewal Program These national professional 5th Floor 1739 Snowmass Creek Rd. organizations and their local chapters Washington, D.C. 20008 Snowmass, CO 81654 maintain membership lists. They may (202) 686-2752 (303) 927-3851 provide referral services for locating consulting firms. RMI is a nonprofit research and educational foundation. Its Economic Renewal Program offers Engineers community leaders specific do-it- Planners American Consulting Engineers yourself tools (workbooks, case American Planning Association Council studies, meeting guides) to strengthen 1313 East 60th Street 1015 15th Street, NW rural communities. Though not Chicago, IL 60637 Washington, D.C. 20005 specifically geared to waterfront (312) 955-9100 (202) DATE.347-7474 communities, RMI's techniques can be used for tapping community ingenu- American Institute American Public Works Association ity in revitalizing the economy. of Certified Planners 1313 East 60th Street 1776 Massachusetts Ave., NW, OFChicago, IL 60637 Small Towns Institute Suite 704 (312) 667-2200 Kenneth D. Munsell, Director Washington, D.C. 20036 P.O. Box 517 (202) 872-0611 American Society of Civil Engineers Ellensburg, WA 98926 American Society of Consulting 345 East 47th Street (206) 925-1830 Planners OUT New York, NY 10017 The institute researches issues, 1667 K Street, NW (212) 705-7496 problems, and solutions for Suite 750 improving the economic and social Washington, D.C.IS 20006 Illuminating Engineering Society climate of smaller communities. It (202) 659-2727 345 East 47th Street publishes a bimonthly publication. New York, NY 10017 Small Town, which often features (212) 705-7919 articles on how small communities Architects have participated in various renewal National Society of Professional projects. American Institute of Architects 1735 New Yorkinformation: Ave., NW Engineers Washington, D.C. 20006 1420 King Street Western Rural Development Center (202) 626-7300 Arlington, VA 22314 Oregon State University (703) 684-2800 Corvallis, OR 97331 (503) 737-3621 Institute of Transportation Engineers The Center is involved in research 525 School Street, SW and education on issues facing rural Suite 410 communities in the Western states. current Washington, D.C. 20024 WRDC can help youPUBLICATION locate specialists (202) 554-8050 from Extension services and universities in fields such as economics, socio- logy, and business development. WRDC also funds small seed-projects for generating communitymost develop- mentTHIS programs. Several publications are focused on small towns and their changing economics, and citizen participation.For http://extension.oregonstate.edu/catalog

Waterfront Revitalization for Small Cities 123 DATE. OF

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224 Waterfront Revitalization for Small Cities Support for this publication was provided in part by funds from the Oregon Department of Land Conser- vation and Development through Section 306 to the Coastal Zone Management Act, administered by the U.S. Department of Commerce, National Oceanic and Atmospheric Administration (NOAA), Office of Ocean and Coastal Resources Manage- ment; in part by grant number NA85AA-D-SG095, project A/ESG-1 (Extension Sea Grant), from NOAA to the Oregon Sea Grant Program; and in part by grant number NA89AA-D- SG022, project A/FP-7 (Marine DATE. Advisory Services), from NOAA to the Washington Sea Grant Program. OF^ y* Extension Service, Oregon State University, Corvallis, O.E. Smith, **} director. This publication was produced and distributed in further- ance of the Acts of Congress of May 8 and June 30,1914. Extension work is a OUT cooperative program of Oregon State University, the U.S. Department of IS Agriculture, and Oregon counties.

Oregon State University Extension Service offers educational programs, activities, and materials—without regard to race, color, national origin, sex, age, or disabihty—as required by information: Title VI of the Civil Rights Act of 1964, Title IX of the Education Amendments of 1972, and Section 504 of the Reha- bihtation Act of 1973. Oregon State University Extension Service is an Equal Opportunity Employer. PUBLICATIONcurrent most THIS For http://extension.oregonstate.edu/catalog DATE. OF

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