INNER POWELL BOULEVARD STREETSCAPE PLAN

ROSS ISLAND BRIDGEHEAD TO 92ND AVE

POLICY BACKGROUND AND EXISTING CONDITIONS

TECHNICAL MEMORANDUM

REVISED DRAFT

December 28, 2006 City of Portland Office of Transportation

This project is partially funded by a grant from the Transportation and Growth Management (TGM) Program, a joint program of the Oregon Department of Transportation and the Oregon Department of Land Conservation and Development. This TGM grant is financed, in part, by federal Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU), local government, and State of Oregon funds.

The contents of this document do not necessarily reflect views or policies of the State of Oregon.

To obtain a copy of this document or more information about this project, please contact:

April Bertelsen Transportation Planner Portland Office of Transportation 1120 SW 5th Ave, Suite 800 Portland, Oregon 97204 (503) 823-6177 [email protected]

Inner Powell Boulevard Policy Background and Existing Conditions 2 Table of Contents

Introduction ...... 5 PROJECT AREA ...... 6 History of Powell Boulevard ...... 7 Policy Background ...... 9 STATE POLICY ...... 9 Oregon Highway Plan ...... 9 REGIONAL POLICY ...... 10 2004 Regional Transportation Plan ...... 10 Powell/Foster Corridor Transportation Plan ...... 12 LOCAL CITY POLICY ...... 14 Transportation System Plan ...... 14 Central Eastside Transportation Study ...... 19 Comprehensive Plan and Zoning ...... 19 Powell Boulevard Special Setback ...... 20 Portland Stormwater Management Manual ...... 21 Portland Green Street Policy ...... 21 Jurisdiction and Maintenance ...... 23 RIGHT-OF-WAY OWNERSHIP AND MAINTENANCE ...... 23 CURRENT MAINTENANCE PRACTICES ...... 25 Street Design Standards ...... 27 STREET DESIGN STANDARDS MATRIX ...... 27 DEVELOPMENT REVIEW DESIGN STANDARDS ...... 33 PORTLAND PEDESTRIAN DESIGN GUIDE ...... 35 PORTLAND FREIGHT MASTER PLAN ...... 36 METRO STREET DESIGN GUIDELINES ...... 36 Existing Conditions ...... 37 GENERAL DESCRIPTION ...... 37 RECENT IMPROVEMENT PROJECTS ...... 37 City of Portland 82nd Ave Signal Reconstruction ...... 37 TriMet Bus Streamline Project ...... 37 ODOT Phase I Preservation Project ...... 37 STREET CROSS-SECTION ...... 38 Sidewalks and Pedestrian Crossings ...... 42 Bicycling Environment in the Corridor ...... 42 Driveways ...... 43 Parking ...... 43 TRANSIT ...... 44 SEWER AND STORMWATER INFRASTRUCTURE ...... 44 DEVELOPMENT ACTIVITY ALONG POWELL BLVD ...... 44 TRAFFIC ANALYSIS ...... 46 Signalized Intersections ...... 46

Inner Powell Boulevard Policy Background and Existing Conditions 3 Traffic Volumes ...... 47 Intersection Levels of Service (LOS) Standard ...... 47 Traffic Operations ...... 48 Traffic Queuing ...... 51 CRASH HISTORY AND SAFETY ANALYSIS ...... 52

APPENDIX A: POWELL BOULEVARD PLAN DISTRICT APPENDIX B: ZONING MAP APPENDIX C: CORRIDOR RIGHT-OF-WAY MAPS APPENDIX D: SIDEWALK INTERSECTION CURB RAMP INVENTORY APPENDIX E: MAP OF EXISTING AND PROPOSED BIKEWAYS APPENDIX F: MAPS OF TRIMET TRANSIT SERVICE APPENDIX G: MAPS OF EXISTING SEWER AND STORMWATER APPENDIX H: TRAFFIC SIGNAL COUNT DATA APPENDIX I: TRAFFIC OPERATIONS FIELD NOTES APPENDIX J: INTERSECTION ANALYSIS WORKSHEETS

Inner Powell Boulevard Policy Background and Existing Conditions 4 Introduction

The purpose of the Inner Powell Boulevard Policy Background and Existing Conditions Technical Memorandum is to inform the development of a streetscape plan for Powell Boulevard from the Ross Island Bridge to SE 92nd Avenue. Several regional and local plans call for a streetscape plan and multi-modal improvements along Powell Blvd, including the Powell/Foster Corridor Transportation Plan (Metro, 2003), Portland Transportation System Plan and Central Eastside Transportation Study (City of Portland, 1990).

Powell Blvd connects downtown and Southwest Portland via the Ross Island Bridge to SE Portland, Gresham and east Multnomah County. Powell Blvd is designated a State Highway, No. 26. The Oregon Department of Transportation and City of Portland share jurisdiction and maintenance responsibilities for Powell Blvd.

From the Ross Island Bridge to I-205, Powell Blvd is typically a four-lane roadway with two lanes in each direction. The segment of Powell Blvd between the Ross Island Bridge and I-205 is about four and half miles long. Between the Ross Island bridgehead and SE 50th Ave there is typically a continuous center turn-lane with intermittent median refuge islands. East of SE 50th Ave there is typically a continuous landscaped median with center turn-lane refuges near intersections. There are no bike lanes along Powell Blvd. There is typically no on-street parking along Powell. The only on-street parallel parking along Powell Blvd is between SE 22nd Ave and 25th Ave. There is a public parking lot north of Powell Blvd between 21st Ave and 22nd Ave and another between 26th Ave and 28th Ave south of Powell Blvd. 109 parking spaces are provided at limited locations in nine public parking lots between SE 53rd Ave and 79th Ave.

Sidewalks along Powell vary in width. Between the Ross Island Bridge and 50th Ave the sidewalks are typically 10 feet wide, though in some instances they narrow to 6 feet wide. The streets are lined with street trees, but do not typically have planter strips and some trees are missing from tree wells. There is an intermittent planting strip on the south side of Powell Blvd between 6th Ave and 11th Ave. East of 50th Ave, the sidewalks vary in width from 6 to 10 feet. Additionally, east of 50th Ave, the sidewalks are buffered from the roadway with planter strips that range in width from 6 to 21 feet, and the center medians are landscaped and lined with trees.

The posted Speed Limit on Powell Blvd is 35 miles per hour (mph).

SE Powell Blvd has the following modal street classifications in the Portland Transportation System Plan. These classifications are consistent with the Regional Transportation Plan.  Regional Corridor  Major Traffic Street  City Walkway  Major Truck Street  Major Emergency Response Route  Major Transit Priority Street (from the Ross Island bridgehead to SE 50th Avenue)  City Bikeway from Ross Island Bridge to SE 9th Avenue and 72nd Avenue to City Limits

Inner Powell Boulevard Policy Background and Existing Conditions 5 PROJECT AREA The Project Area extends along the SE Powell Boulevard right-of-way from the Ross Island Bridgehead to the western side of the SE 92nd Avenue intersection, plus half a block to the north and south on side streets for purposes of addressing bike and pedestrian connections and intersection design. For transportation analysis purposes, the study area will extend north to SE Division, south to SE Holgate, and east to SE 102nd Ave.

Inner Powell Boulevard Policy Background and Existing Conditions 6 History of Powell Boulevard

From Portland’s earliest days, SE Powell Boulevard, designated the Mt. Hood Highway No. 26, has connected downtown Portland with eastern Multnomah County and eastern Oregon as well as the southeast part of the City of Portland. Powell Blvd was originally a farm to market road connecting Portland with early farm communities. Prior to the early 1980s, Powell Boulevard was generally a four-lane roadway with sidewalks and parking allowed during off-peak hours. The concept of an improved trafficway leading from downtown Portland through the southeast residential areas and into east Multnomah County began with the 1955 basic freeway and expressway system plan recommended by the Oregon State Highway Department, now the Oregon Department of Transportation (ODOT). This proposal became known as the Mt. Hood Freeway. In 1969 a corridor following Division Street and Powell Boulevard was adopted and made part of the Federal Interstate Highway System. It was then included in the Portland- Vancouver Metropolitan Area Transportation Study plan adopted in 1971.

Following community opposition, plans for the Mt. Hood Freeway were later dropped and replaced by an alternative approach to handling east-west regional through traffic in the east metropolitan area. The freeway would have significantly impacted the existing neighborhoods and displaced residents and businesses. The City of Portland, Multnomah County, and the Columbia Region Association of Governments (CRAG), now Metro, acted to withdraw the freeway from the interstate system in 1974. This was completed in 1976.

In the meantime, the through-traffic carrying role of Powell was de-emphasized in the mid-1970s to enhance its capability of serving the local traffic needs of southeast Portland. CRAG adopted the Interim Regional Transportation Plan in 1975. This plan did not include a freeway through southeast Portland and designated Powell Blvd a principle arterial. This reflected the objective of routing regional through trips around rather than through southeast Portland and improving southeast arterials in the Portland Arterial Street Classification Policy adopted in 1977, which viewed the role of Powell Boulevard as carrying moderate volumes of mainly local traffic.

Planning for improvements to Powell Boulevard began in 1975 when it became evident that the Mt. Hood Freeway would not be built. The purpose of the project was to a) improve the efficiency of Powell Blvd as a Major City Traffic Street serving Southeast Portland by improving traffic service, removing traffic movement conflicts, and reducing safety hazards by widening the roadway to standard widths and incorporating design features to control traffic movements, and b) improve the efficiency of Powell Boulevard in a way that preserves neighborhood quality. The project was built in coordination with other key transportation projects in east Portland, including the I-205 Freeway and Banfield Light Rail.

The Powell Boulevard Project was built in two phases. Phase I of the Powell Boulevard Project upgraded Powell from the Ross Island Bridge to 50th Avenue. In general, an improved four-lane facility was built with a continuous left-turn refuge, traffic signal synchronization, and left-turn signal phases at major intersections. All on-street parking was removed. Pedestrian crossing improvements, including a pedestrian overpass at SE 9th Avenue, and a ramp from McLoughlin Boulevard northbound to Powell Boulevard westbound were built.

Inner Powell Boulevard Policy Background and Existing Conditions 7 Phase II of the project upgraded Powell from 50th Avenue to 92nd Avenue with a four-lane boulevard treatment, that included planted medians with left-turn refuges in the center, generally fifteen feet on both sides of the roadway for sidewalks, street trees, landscaped buffers and bus turn-outs. No parking was allowed on the roadway. Parking was provided in parking pockets on the south side of Powell. Frontage roads on the south side were designed to: a) line up and control access to streets crossing Powell Boulevard; b) provide access to parking areas; and c) provide for u-turn movements. Barriers were provided on the south side to buffer residential properties from the street. Redevelopment of commercial land uses on the south side was restricted to specific areas. The right-of-way ranged from 90 feet to 160 feet where parking was installed.

In preparation for constructing the proposed Mt. Hood Freeway, ODOT had advanced acquisition of property in and near the project corridor. Properties within the freeway’s proposed right-of-way, including many homes, were purchased before plans for the freeway were dropped from owners. Following the decision to not build the freeway, ODOT undertook a program of disposing of many of these properties. Some of the property was kept and used to widen Powell Blvd and provide amenities including the public parking lots.

In 1979, the City of Portland adopted the Powell Boulevard Special Setback. It is a special setback for development along Powell Blvd from Ross Island Bridge to SE 50th Ave. The special setback requires a setback of ten feet from the property line for all new construction along Powell Blvd for the purpose of providing light, air, driver sight distance, pedestrian safety and space for street tree growth. The special setback remains in effect.

In 1984, the City of Portland adopted a special zone, previously known as the “Y Powell Boulevard, Phase II Land Use Control Zone” as a part of Phase II of the Powell Blvd Project. The “Y-zone” was only applied to certain properties along Powell Blvd. The purpose of the zone was to assure that redevelopment within the project area preserves the quality of the neighborhood. The land use controls established specific criteria in addition to the regulations of regular zones, to maximize the opportunity for commercial redevelopment and to provide buffering of all residential development within the project area.

In 1991, the “Y-zone” was replaced by the “Powell Boulevard Plan District,” Chapter 33.567 of the Portland Zoning Code. The Chapter is located in Appendix A. The regulations of the Powell Boulevard plan district are intended to buffer residences from the noise and traffic of Powell Boulevard, to promote commercial redevelopment opportunities, and to ensure the smooth flow of traffic on Powell Boulevard. The regulations of this chapter support the intent of the highway improvements which widened Powell Boulevard and created public off-street parking. The Powell Boulevard Environmental Impact Statement required noise protection for the adjacent residential neighborhood, the encouragement of commercial opportunities and the preservation of highway traffic flows.

Inner Powell Boulevard Policy Background and Existing Conditions 8 Policy Background

STATE POLICY

Oregon Highway Plan The 1999 Oregon Highway Plan (OHP) contains goals and policies to guide management and investment decisions on Oregon’s highway system. Goals of the plan include: . Increase safety and capacity as well as preserve capital investments previously made on the state highway system. . Foster cooperation with regional and local governments. . Increase linkages between land use and transportation. . Develop and maintain access management. . Provide linkages with other transportation modes. . Create a sustainable and environmentally friendly system.

The OHP classifies highways according to their transportation function as part of the state system. The segment of Powell Boulevard (US Highway 26) that is the subject of the Inner Powell Boulevard Streetscape Plan project is classified as a district highway, defined as follows:

District highways are facilities of county-wide significance and function largely as county and city arterials or collectors. They provide connections and links between small urbanized areas, rural centers and urban hubs, and also serve local access and traffic. The management objective is to provide for safe and efficient, moderate to high-speed continuous-flow operation in rural areas reflecting the surrounding environment and moderate to low-speed operation in urban and urbanizing areas for traffic flow and for pedestrian and bicycle movements.

The OHP includes standards for access management – the spacing of streets and driveways that connect to highways – and for mobility. Access management is an important tool to maintain safety and capacity on road systems, as the more driveways and intersections on a given segment of road, the greater the potential for crashes and congestion. The access spacing standard for inner Powell Boulevard is 400 feet, which in most cases is greater than the existing pattern of blocks and lots. In such cases, ODOT policies allow existing “landlocked” lots (lots that can only be accessed from the highway, and not from side streets) to have a single driveway from the highway, although the policy also encourages other access solutions such as shared driveways.

As adopted in the OHP, ODOT uses volume-to-capacity (v/c) ratios to measure state highway performance rather than intersection or roadway levels of service. Various v/c thresholds are applied to all state highways based on functional classification of these facilities. The OHP’s mobility standard on inner Powell Boulevard is a volume-to-capacity ratio of 0.99 for the two- hour traffic peak. I-205 is classified by the OHP as an Interstate highway with a v/c threshold of 0.80.

Inner Powell Boulevard Policy Background and Existing Conditions 9 REGIONAL POLICY

2004 Regional Transportation Plan The Regional Transportation Plan is a 20-year blueprint for the Portland metropolitan region’s transportation system. The plan deals with how best to move people and goods in and through the region. One of the region’s goals is to provide a balanced range of transportation choices for the movement of people and goods in this region. The plan sets transportation policies for all forms of travel: motor vehicle, transit, pedestrian, bicycle and freight. The plan includes specific objectives, strategies and projects to guide local and regional implementation of each policy. The regional designations for SE Powell Blvd in the Metro Regional Transportation Plan are listed in Table 1. These designations are described in the paragraphs below. Local policy must be consistent with regional designations in the RTP.

Table 1: Regional Transportation Plan Designations Mode Segment Designation Street Design Bridge – City Limits Regional Street Motor Vehicle Bridge – City Limits Major Arterial Public Transportation Bridge – 50th Ave Rapid Bus 50th Ave – City Limits Regional Bus Freight Bridge – City Limits Road Connector Bicycle Bridge – 72nd Ave No Designation 72nd Ave – City Limits Community Connector Bikeway Pedestrian Bridge – City Limits Transit/Mixed-use Corridor

Regional Streets. Regional streets are designed to carry significant vehicle traffic while also providing for public transportation, bicycle and pedestrian travel. These facilities serve a development pattern that ranges from low-density residential neighborhoods to more densely developed corridors and main streets, where buildings are often oriented toward the street at major intersections and transit stops. Regional street designs accommodate moderate motor vehicle speeds and usually include four vehicle lanes. Additional motor vehicle lanes may be appropriate in some situations. These facilities have some to many street connections, depending on the district they are serving. Regional streets have few driveways that are combined whenever possible. On-street parking may be included, and a center median serves as a pedestrian refuge and allows for left turn movements at intersections.

These facilities are designed to be transit-oriented, with high-quality service and substantial transit amenities at stops and station areas. Although less substantial than in boulevard designs, pedestrian improvements are important along regional streets, including sidewalks that are buffered from motor vehicle travel, crossings at all intersections and special crossing amenities at major intersections. Regional streets have bike lanes or wide outside lanes where bike lanes are not physically possible, or are shared roadways where motor vehicle speeds are low. They also serve as primary freight routes and may include loading facilities within the street design, where appropriate. The figure below illustrates a typical cross-section of a regional and community street.

Inner Powell Boulevard Policy Background and Existing Conditions 10

Source: Metro

Major arterials. These facilities serve as primary links to the principal arterial system. Major arterials, in combination with principal arterials, are intended to provide general mobility for travel within the region. Motor vehicle trips between the central city, regional centers, industrial areas and intermodal facilities should occur on these routes. Major arterials serve as freight routes, with an emphasis on mobility. These routes fall within regional boulevard, regional street, urban road and rural road designs, as defined in the regional street design concepts.

Major arterial system design criteria: • Major arterials should provide motor vehicle connections between the central city, regional centers, industrial areas and intermodal facilities and connect to the principal arterial system. If more than one route is available, the more direct route will be designated when it supports the planned urban form. • Major arterials should serve as primary connections to principal arterials, and should also connect to other arterials, collectors and local streets, where appropriate. • Freight movement should not be restricted on the principal arterial network. • The principal and major arterial systems in total should comprise 5-10 percent of the motor vehicle system and carry 40-65 percent of the total vehicle miles traveled.

Rapid bus. Regional rapid bus service emulates LRT service in speed, frequency and comfort, serving major transit routes with limited stops. This service runs at least every 15 minutes during the weekday and weekend mid-day base periods. Passenger amenities are concentrated at transit centers. Regional rapid bus passenger amenities include schedule information, ticket machines, special lighting, benches, covered bus shelters and bicycle parking.

Regional bus. Regional bus service is provided on most major urban streets. This type of bus service operates with maximum frequencies of 15 minutes with conventional stop spacing along the route. Transit preferential treatments and passenger amenities such as covered bus shelters, special lighting, signal preemption and curb extensions are appropriate at high ridership locations.

Inner Powell Boulevard Policy Background and Existing Conditions 11 Road connectors. A road that connects freight facilities or freight generation areas to the main roadway route.

Community connector bikeway. These bikeways connect smaller town centers, main streets, station areas, industrial areas and other regional attractions to the regional bikeway system.

Transit/mixed-use corridor. Transit/mixed-use corridors (referred to only as corridors in the 2040 Growth Concept) are also priority areas for pedestrian improvements. They are located along good-quality transit lines and will be redeveloped at densities that are somewhat more than today. These corridors will generate substantial pedestrian traffic near neighborhood-oriented retail development, schools, parks and bus stops. These corridors should be designed to promote pedestrian travel with such features as wide sidewalks with buffering from adjacent motor vehicle traffic, street crossings at least every 530 feet (unless there are no intersections, bus stops or other pedestrian attractions), special crossing amenities at some locations, special lighting, benches, bus shelters, awnings and street trees. This designation includes multi-modal bridges.

Powell/Foster Corridor Transportation Plan In 2003, Metro developed the Powell/Foster Corridor Transportation Plan. The plan presents recommendations for Phase I of the Powell Boulevard/Foster Road Corridor Transportation Plan based on results of a process that evaluated various multi-modal (transit, roadway, bicycle and pedestrian) improvements.

The Powell/Foster Corridor represents both a key transportation challenge and an opportunity to meet 2040 regional land use goals. Metro’s Regional Transportation Plan (RTP) identifies the Powell/Foster as a top priority among corridors requiring refinement plans. Despite policy changes to level-of-service standards that permit greater levels of congestion, significant multi- modal improvements will be needed in order to continue to serve transportation needs of the communities and industrial areas in southeast Portland and Gresham. The corridor is also critical to providing access to the planned growth areas in Damascus, Springwater and Pleasant Valley that have recently been added to the Urban Growth Boundary.

The recommendations identified in the plan for Powell Boulevard from the Ross Island Bridge to I-205 are stated below.

Roadway Recommendations Summary Conclusion: Due to the built environment, excellent grid system of streets and numerous transit options, this portion of the corridor was not considered for roadway widening. However, the review of existing conditions and concerns raised through public outreach identified significant pedestrian, safety and urban design issues that need to be addressed in a more detailed study.

Recommendation: Develop and implement streetscape improvements to Powell Boulevard between the Ross Island Bridge and SE 50th Avenue. In the short term, a streetscape study should consider enhancements to the aesthetic environment and evaluation of pedestrian safety. It should also address specific issues identified by community members such as pedestrian crossing

Inner Powell Boulevard Policy Background and Existing Conditions 12 improvements at Powell Park and Cleveland High School, Creston Park and Creston School and SE Milwaukie, SE 17th and SE 39th Avenues. Pedestrian crossing improvements could include signalized intersections and raised medians.

Next Steps: The City of Portland Office of Transportation (PDOT), ODOT and Metro should consider amending the Financially Constrained RTP to include a streetscape plan of Powell Boulevard in the short-term led by PDOT. The plan will identify specific intersection modifications, pedestrian and transit facilities and aesthetic improvements. ODOT, TriMet, neighborhood associations and Metro will assist in this planning effort.

Transit Recommendations Summary Conclusion: Powell Boulevard is an important transit corridor that is currently designated for Regional Bus service in the RTP. Because Division is designated for frequent bus service and the Gresham Regional Center is served by MAX, Powell Rapid Bus did not significantly increase ridership in the corridor.

Recommendation: Gresham is incorporating many transit elements and intersection design concepts in the Powell Boulevard Schematic Design Project. These will include many of the following: extended right turn pockets (allowing for their use as a transit queue-bypass lane), far- side bus stop accommodations and traffic signal improvements (including transit priority). The same types of improvements should be developed in City of Portland as part of the project development study for Powell Boulevard from I-205 to SE 174th Avenue. These types of improvements enhance transit operations and reliability and are consistent with the RTP designation of Powell Boulevard as a Regional Bus Route. The improvements also allow for a future reconfiguration of existing transit services that could include Rapid Bus, when warranted.

Bus service “streamlining” is anticipated to continue on portions of Powell Boulevard, which will improve ridership levels. Improvements will include transit queue-bypass lanes, far-side bus stops and traffic signal pre-emption.

Next Steps: The cities of Gresham and Portland should continue to seek transportation system management (TSM) funding for enhancements to transit operations and reliability.

Inner Powell Boulevard Policy Background and Existing Conditions 13 LOCAL CITY POLICY

Transportation System Plan The Transportation System Plan (TSP) is the 20-year plan for transportation improvements in the City of Portland. The goal of the TSP is to provide transportation choices for residents, employees, visitors and firms doing business in Portland. The TSP describes what the system should look like and what purpose it fulfills. The street classification maps and street plan maps in the TSP are adopted as part of the Comprehensive Plan, as are the policies. In reading the policies, care should be taken to note that language may be aspirational (such as ‘should’ or encourage’) or mandatory (such as ‘shall’ or ‘will’). Most comprehensive Plan policies are ‘balancing’ policies that should be looked at together to determine whether an activity achieves the optimal balance.

Street classification descriptions and designations in the TSP describe the types of motor vehicle, transit, bicycle, pedestrian, truck and emergency response movement that should be emphasized on each street. They are used to determine the appropriateness of street improvements and to make recommendations on new and expanding land uses through the land use review process. Classification descriptions are used to describe how streets should function for each mode of travel, not necessarily how they are functioning at present.

The street classifications from Chapter 2 of the TSP for SE Powell Blvd are listed in Table 2 below. These classifications are described in the paragraphs below.

Table 2: Transportation System Plan Street Classifications Mode Segment Classification Traffic Bridge – I-205 Major City Traffic Street Transit Bridge – 50th Major Transit Priority Street 50th – I-205 Transit Access Street Bicycle Bridge – SE 9th City Bikeway SE 9th – 72nd Local Service Bikeway SE 72nd – I-205 City Bikeway Pedestrian Bridge – I-205 City Walkway Freight Bridge – I-205 Major Truck Street Emergency Response Bridge – I-205 Major Emergency Response Street Street Design Bridge – I-205 Regional Corridor

Major City Traffic Street: Intended to serve as the principal routes for traffic that has at least one trip end within the Southeast transportation district. On-street parking may be removed and additional right-of-way purchased to provide adequate traffic access when consistent with the street design designation of the street. Evaluate the need for on-street parking to serve adjacent land uses and improve the safety of pedestrians and bicyclist when making changes to the roadway.

Inner Powell Boulevard Policy Background and Existing Conditions 14 Major Transit Priority Street: Intended to provide for high-quality transit service that connects the Central city and other regional and town centers and main streets. Provide safe and convenient access for pedestrians and bicyclist to, across, and along Major Transit Priority Streets. Employ transit-preferential measures, such as signal priority and bypass lanes. Where compatible with adjacent land use designations, right-of-way acquisition or parking removal may occur to accommodate transit-preferential measures or improve access to transit. Provide safe and convenient transfer points with covered waiting areas, transit route information, benches, trash receptacles, enhanced signing, lighting and telephones.

Transit Access Street: Intended for district-oriented transit service serving main streets, neighborhoods and commercial, industrial and employment areas. Provide safe and convenient pedestrian and bicycle access to transfer points and stops and long Transit Access Streets. Employ transit-preferential measures at specific intersections to facilitate bus operations where there are significant bus delays. Applicable preferential treatments include signal priority, queue jump lanes and curb extensions.

City Bikeway: Intended to serve the Central City, regional and town centers, station communities and other employment, commercial, institutional and recreational destinations. Consider the following factors in determining the appropriate design treatment for City Bikeways: traffic volumes, speed of motor vehicles and street width. Minimize conflicts where City Bikeways cross other streets. Consider the following possible design treatments for City Bikeways: bicycle lanes, wider travel lanes, wider shoulders on partially improved roadways, bicycle boulevards and signage for local street connections.

Local Service Bikeway: Intended to serve local circulation needs for bicyclists and provide access to adjacent properties. Consider the following design treatments: shared roadways, traffic calming, bicycles lanes and extra-wide curb lanes. Crossing of Local Service Bikeways with other right-of-way should minimize conflicts.

City Walkway: Intended to provide safe, convenient and attractive pedestrian access to activities along major streets and to recreational and institutions; provide connections between neighborhoods; and provide access to transit. Use the Pedestrian Design Guidelines to design City walkways. Consider special design treatments for City Walkways that are also designated as Regional or Community Main Streets.

Major Truck Street: Intended to serve truck trips with one or both trip ends in the Southeast transportation district. Major Truck Streets should distribute truck traffic from Regional Truck Streets to Minor Truck Streets and provide access to Truck Districts. On new or reconstructed Major Truck Streets, buffer adjacent residential uses from noise impacts, where warranted. Truck access points should be consolidated to the extent feasible to reduce conflicts with all modes.

Major Emergency Response Street: Intended to serve primarily the longer, most direct legs of emergency response trips. Design treatments on Major Emergency Response Streets should enhance mobility for emergency response vehicles by employing preferential or priority treatments. Major Emergency Response Streets are not eligible for traffic slowing devises in the future. Existing traffic slowing devises may remain and be replaced if necessary.

Inner Powell Boulevard Policy Background and Existing Conditions 15 Regional Corridor: Regional Corridors are designed to include special amenities to balance motor vehicle traffic with public transportation, bicycle travel and pedestrian travel. Regional Corridors usually include four vehicle travel lanes. They occasionally have additional lanes in some situations, such as to allow turning movements. Design shall consider the following: moderate vehicle speeds; the use of medians and curb extensions to enhance pedestrian crossing where wide streets make crossing difficult or to manage motor vehicle access’ combined driveway; on-street parking when feasible; buffered sidewalks with pedestrian amenities such as special lighting and special crossing amenities tied to major transit stops; landscape strips, street trees or other design features that create a pedestrian buffer between curb and sidewalk; improved pedestrian crossings at signalized intersections; striped bikeways or wide outside lanes; and motor vehicle lane widths that consider the above improvements.

Relevant TSP Southeast Transportation District Policy and Objectives The following district-wide policy and objectives from Chapter 2 of the TSP are relevant to the role of Powell Blvd in Southeast Portland. They should be considered when identifying streetscape improvements along Powell Blvd. Policy 6.37. Reduce travel demand and reliance on the automobile in Southeast Portland to protect residential areas and industrial sanctuaries from non-local traffic, while maintaining access to established commercial areas. Objectives: A. Direct inter-district traffic to Regional Trafficways on the edges of the district, and manage traffic on Major City Traffic Streets and other arterials primarily through transportation system management measures. C. Operate Neighborhood Collectors in Southeast Portland to function primarily as circulation for district traffic rather than as regional streets, even where they carry a significant amount of regional traffic. D. Facilitate pedestrian access and safety in Southeast Portland by improving connections to the Willamette River; adding connections between neighborhoods and parks, institutions, and commercial areas; and enhancing pedestrian crossings with curb extensions and improved markings. E. Improve access and safety for bicycles through the development of more inner Southeast east/west bike routes and the provision of bicycle facilities across bridges and to a variety of destinations, including downtown, the river, and parks. G. Encourage regional and inter-district truck traffic to use Regional and Major Truck Streets in southeast Portland by establishing convenient truck routing that better serves trucks, while protecting Southeast neighborhoods.

Inner Powell Boulevard Policy Background and Existing Conditions 16 Relevant TSP System Improvement Projects There are three system improvement projects along Powell Blvd identified in the TSP. The projects are described below.

Powell, SE (Ross Island Bridge - 50th): Multi-modal Improvements [Project #70045] Plan and develop streetscape and transportation improvements to increase opportunities to walk and enhance the pedestrian character of the corridor including intersection improvements at 8th, 26th, and Milwaukie. ODOT/Portland $1,000,000 (Years 1 - 5) 70046 Powell, SE (71st - I-205): Bikeway [Project #70046] Retrofit bike lanes to existing street. ODOT $4,500,000 (Years 11 - 20) 70047 Powell - Foster Rapid Bus, SE [Project #70047] Construct improvements that enhance Rapid Bus service along the Powell-Foster corridor between downtown Portland and Damascus. Tri Met $N/A (Years 11 - 20)

Transportation System Plan System Plans and Studies The following study relevant to Powell Blvd is identified in the TSP.

Inner Powell/Ross Island Bridgehead Access and Circulation Study Purpose: Study access and circulation alternatives to the east ramps of the Ross Island Bridge, including local circulation and pedestrian and bicycle access, and create a streetscape plan between the bridge and SE 50th Avenue. This study has many elements that could be conducted as part of other recommended TSP studies (such as the I-5/I-405 Inner Freeway Loop Study or the Brooklyn Neighborhood River Access) or could be undertaken independently. It involves two basic issues that should be evaluated together: improving the access route to the Ross Island Bridge from the Central Eastside Industrial District (CEID) and reducing the pedestrian barrier effect created by the current design of the inner segment of Powell to SE 21st Avenue. The Central Eastside Transportation Study (1990) presented several concepts for improving the current traffic and truck access route from the CEID to/from the Ross Island Bridge. Further investigation may identify other alternatives. During its most recent review of I-5 southbound access alternatives from the Central Eastside, City Council indicated a preference to improve access to I-5 southbound via the Ross Island Bridge rather than support construction of the Water Avenue ramp. The inner segment of Powell Boulevard is a significant barrier for pedestrians, and its highway design may not be compatible as an edge to the neighborhood to the south. There are no protected at-grade crossings of Powell between the bridge and Milwaukie and between Milwaukie and SE 26th Avenue. The streetscape portion of the study should address the aesthetic environment and pedestrian crossing improvements at Powell Park and Cleveland High School, Creston Park and Creston School and SE Milwaukie, SE 17th, and SE 39th Avenues.

Inner Powell Boulevard Policy Background and Existing Conditions 17 Transportation System Plan Access Management Policy The following access management policy, objectives and implementation regulations are identified in Chapter 2 and Chapter 5 of the TSP.

Policy 6.16. Promote an efficient and safe street system, and provide adequate accessibility to planned land uses.

Objectives: A. Work with ODOT to manage the location, spacing, and type of road and street intersections on Regional Trafficways, St. Helens Road, Lombard east of Interstate 5, and McLoughlin, and develop access management plans for other City streets as needed to ensure the safe and efficient operation of these facilities. B. Provide local access to arterials, while minimizing conflicts with through-traffic. Explanation: The need for access to individual properties has to be balanced with the need for safe access. Reducing the number of curb cuts, either through consolidation or shared driveways, can improve the function of the street for all modes. C. Ensure that access management measures do not adversely impact any transportation mode, consistent with the classifications of the street where these measures are applied.

Implementation: Access management provides efficient and safe movement of traffic while also providing adequate accessibility to adjacent land uses. Both the City and state recognize the importance of controlling access to properties adjacent to highways and major arterials to ensure the facilities operate safely, efficiently, and at reasonable levels of service. The City implements access management strategies on a case-by-case basis as land use applications come in. Exceptions are: 1) Airport Way, which has an access management plan, and 2) a portion of NE Killingsworth Street, which has an access management plan, which was adopted in 2004. The actions and objectives set forth in the latter access management plan are specifically incorporated into the TSP. ODOT administers access management on state facilities, based on the state’s access management standards, which are part of the 1999 Oregon Highway Plan. The City’s approach to access management considers more than the need to maintain traffic flow and safe turn movements in and out of driveways along arterials. If, for example, locating driveways off side streets would lead to traffic infiltration on local residential streets, the needs of neighborhood livability may be more important than traffic flow on the arterials. Various chapters of Title 33, Planning and Zoning, include access management regulations intended to reduce conflicts with transit movements or support pedestrian-oriented development. Plan district provisions regulate areas of the City subject to access management, including the Central City, Gateway regional center, small areas along SE Powell Boulevard, and the Hollywood town center. Title 17 regulates the location, number, and size of driveways. Driveways may be restricted where necessary to “insure the safe and orderly flow of pedestrian and vehicular traffic.” Driveways may be required to be reconstructed or removed “for the protection or convenience of pedestrians or vehicles using the street.” Access management tools could

Inner Powell Boulevard Policy Background and Existing Conditions 18 also be used to reduce conflicts with bicyclists, particularly where the City has installed bike lanes. The Powell Boulevard plan district (Title 33, Chapter 33.565) encourages the consolidation of curb cuts where possible. Traffic access points from the frontage roads immediately south of Powell Boulevard are given preference over new access points directly onto Powell Boulevard. Powell Boulevard is a state facility subject to state access management requirements.

Central Eastside Transportation Study The City of Portland adopted the Central Eastside Transportation Study in 1990. The study was intended to provide a review of existing transportation policies, evaluate current and future transportation conditions and develop a set of improvement options and recommendations for the study area. Among the highway improvement recommendations, is a traffic signal at SE Powell and 8th Avenue, upgrades to SE 8th Avenue between Powell and Division, and improvements to provide a pedestrian/bicycle route on SE 9th Ave between Powell and Division. The purpose of the signal at SE 8th and Powell Blvd is to provide access from Ross Island Bridge and Powell Blvd to the Central Eastside.

Comprehensive Plan and Zoning The Portland Zoning Map and Zoning Code help implement the City’s Comprehensive Plan. The majority of the zoning along Powell Blvd is General Commercial (CG) and various Multi- dwelling zones, including Residential 2,000 (R2) and Residential 1,000 (R1). General descriptions of these zones are provided below. Maps of the zoning designations along Powell Blvd are located in Appendix B. Zoning regulations and development standards are located in Title 33, Portland Zoning Code.

Powell Boulevard Plan District Some properties along Powell Blvd are located in the Powell Boulevard Plan District, Chapter 33.567 of the Portland Zoning Code. The Chapter is located in Appendix A. The regulations of the Powell Boulevard plan district are intended to buffer residences from the noise and traffic of Powell Boulevard, to promote commercial redevelopment opportunities, and to ensure the smooth flow of traffic on Powell Boulevard. The regulations of this chapter support the intent of the highway improvements which widened Powell Boulevard and created public off-street parking. The Powell Boulevard Environmental Impact Statement required noise protection for the adjacent residential neighborhood, the encouragement of commercial opportunities and the preservation of highway traffic flows.

Transit Street Development Standards Since Powell Blvd has a Transit Street designation in the TSP, there are several development standards in The Portland Zoning Code that apply to new development, re-development, remodels and additions. There are maximum setback standards that require buildings to be closer to Powell Blvd. The setback requirements along transit streets are intended to create an environment that is inviting to pedestrians and transit users. There are standards that require building main entrances be oriented towards Powell Blvd. Locating the main entrance to a use on

Inner Powell Boulevard Policy Background and Existing Conditions 19 a transit street provides convenient pedestrian access between the use and public sidewalks and transit facilities, and so promotes walking and the use of transit. There are also standards that require ground floor window along the street, minimize garage entrances and minimize parking areas along Powell Blvd.

Minimum Parking Requirement There is no minimum parking requirement for sites located less than 500 feet from a transit street with 20- minute peak hour service or better. As long as TriMet provides frequent transit service along Powell Blvd, no on-site parking is required for uses along Powell Blvd.

General Zoning Descriptions General Commercial zone. The General Commercial (CG) zone is intended to allow auto- accommodating commercial development in areas already predominantly built in this manner and in most newer commercial areas. The zone allows a full range of retail and service businesses with a local or regional market. Industrial uses are allowed but are limited in size to avoid adverse effects different in kind or amount than commercial uses and to ensure that they do not dominate the character of the commercial area. Development is expected to be generally auto-accommodating, except where the site is adjacent to a transit street or in a Pedestrian District. The zone's development standards promote attractive development, an open and pleasant street appearance, and compatibility with adjacent residential areas. Development is intended to be aesthetically pleasing for motorists, transit users, pedestrians, and the businesses themselves.

R2 zone. The R2 zone is a low density multi-dwelling zone. It allows approximately 21.8 dwelling units per acre. Density may be as high as 32 units per acre if amenity bonus provisions are used. Allowed housing is characterized by one to three story buildings, but at a slightly larger amount of building coverage than the R3 zone. The major types of new development will be duplexes, townhouses, rowhouses and garden apartments. These housing types are intended to be compatible with adjacent houses. Generally, R2 zoning will be applied near Major City Traffic Streets, Neighborhood Collector and District Collector streets, and local streets adjacent to commercial areas and transit streets.

R1 zone. The R1 zone is a medium density multi-dwelling zone. It allows approximately 43 units per acre. Density may be as high as 65 units per acre if amenity bonus provisions are used. Allowed housing is characterized by one to four story buildings and a higher percentage of building coverage than in the R2 zone. The major type of new housing development will be multi-dwelling structures (condominiums and apartments), duplexes, townhouses, and rowhouses. Generally, R1 zoning will be applied near Neighborhood Collector and District Collector streets, and local streets adjacent to commercial areas and transit streets.

Powell Boulevard Special Setback There is a special setback for development along Powell Blvd from Ross Island Bridge to SE 50th Ave. The special setback requires a setback of ten feet from the property line for all new construction along Powell Blvd for the purpose of providing light, air, driver sight distance, pedestrian safety and space for street tree growth. The Powell Boulevard Special Setback was adopted by City Council September 19, 1979 and remains in effect.

Inner Powell Boulevard Policy Background and Existing Conditions 20 Portland Stormwater Management Manual

Policy/Philosophy Stormwater management is a key element in maintaining and enhancing the City’s livability. As the City is developed, the impervious surfaces that are created increase the amount of runoff during rainfall events, disrupting the natural hydrologic cycle. Without control, these conditions erode stream channels, prevent groundwater recharge, and are the cause of combined sewer overflows (CSOs) and basement sewer backups. Parking lots, roadways, rooftops, and other impervious surfaces increase the pollution levels and temperature of stormwater runoff that is transported to streams, rivers, and groundwater resources. Protecting these waters is vital for a great number of reasons, including fish and wildlife habitat, human health, recreation, and drinking water. City of Portland Code Chapter 17.38 provides for the effective management of stormwater and drainage, and to maintain and improve water quality in the watercourses and water bodies within the City of Portland as described in 17.38.025. Chapter 17 authorizes adoption of the City of Portland Stormwater Management Manual. The current version of the Manual was released in 2004.

Future Stormwater Facilities The 2004 City of Portland Stormwater Management Manual provides stormwater management principles and techniques that help preserve or mimic the natural hydrologic cycle, minimize sewer system problems, and achieve water quality goals. The manual provides specific requirements for reducing the impacts of increased stormwater runoff flow quantity and pollution resulting from new development and redevelopment. The manual’s requirements apply to all projects within the City of Portland, whether public or private.

. Projects of any size are required to comply with stormwater destination/ disposal requirements as identified in Section 1.4 of the manual.

. All projects developing or redeveloping over 500 square feet of impervious surface are required to comply with pollution reduction and flow control requirements presented in Sections 1.5 and 1.6, respectively.

The version of the manual current at the beginning of project design will be applied.

Portland Green Street Policy The City of Portland is in the process of developing a Green Street policy. Green Streets are streets designed with landscape areas that capture and cleanse stormwater runoff. The policy goal is to promote and incorporate the use of Green Street facilities in public and private development, with the intent to manage stormwater, enhance neighborhood livability, improve the function of the right-of-way, provide habitat corridors and provide connectivity between Portland neighborhoods. To achieve this goal, City bureaus and agencies would be directed to cooperatively plan and implement Green Streets as an integral part of the City’s maintenance, installation and improvement of its infrastructure and to integrate the Green Street policy into the City’s Comprehensive Plan, Transportation System Plan and Citywide Systems Plan.

Inner Powell Boulevard Policy Background and Existing Conditions 21 Acceptance and endorsement of the policy is expected in December 2006. At this time there is not a decision as to whether the policy would be binding or non-binding and whether it should include a target for projects built. The draft proposed policy to go before City Council is available through the Bureau of Environmental Services.

Green Streets are recognized as an effective way to address stormwater volume and water quality. Sixty to seventy percent of Portland’s stormwater can be attributed to the public right-of- way, which receives a significant contribution of runoff from private property, in addition to that from public lands. The City is required by state and federal government, through its Municipal Separate Storm Sewer System (MS4) Permit and its Underground Injection Control (UIC) Permit, to reduce stormwater pollution, protect groundwater, and develop and manage programs that respond to water quality requirements. A broad range of federal, state, tribal, and regional policies, programs and regulations effect how the City manages stormwater, including but not limited to: o Federal programs that address water quality, environmental cleanup, habitat conservation, sewage overflows and flood management, and endangered species; o State of Oregon programs that address water quality, wastewater discharge, watershed planning, environmental cleanup, and salmon recovery; o Native American tribal programs that address fish, water quality, and cultural resources; o Metro’s programs that address transportation, greenspace, and natural resource protection and restoration; and

Inner Powell Boulevard Policy Background and Existing Conditions 22 Jurisdiction and Maintenance

RIGHT-OF-WAY OWNERSHIP AND MAINTENANCE From the Ross Island Bridge to 86th Ave, Powell Blvd is a City Public Right-of-Way. This is different than the State Fee Simple Right-of-Way in that the City controls the ROW, but the abutting property owners retain ownership of the right-of-way to the center line. Excess Public right-of-way cannot be sold by the City, but can be vacated with City approval, with the vacated right-of-way going to the abutting property owners. Along these routes the State maintains the facility from “curb to curb.” On a facility with no curbs, the State maintains the ditches and slopes within the right-of-way. The term “curb to curb” is important to remember when the maintenance of medians is discussed.

Ownership and control of the right-of-way varies along Powell Blvd. From SE 86th Ave to 174th Ave, Powell Blvd is a State Fee Simple Right-of-Way, meaning control and ownership of the right-of-way belongs to the State. Excess right-of-way can be leased or sold by the State. The State has full maintenance responsibility for the entire right-of-way width on State Fee Simple Routes.

Maintenance of individual facilities is further defined in detail by individual miscellaneous contracts and agreements between the State of Oregon and City of Portland. The first agreement was adopted in 1944 (Misc. Contract and Agreement No. 804). The purpose of the agreement was to fix and define the respective duties, controls and responsibilities of the City and the State concerning City streets over which State highways are routed. The agreement pertains to Powell Blvd, which was designated Mt. Hood Highway (Oregon 50) from the east end of the Ross Island Bridge easterly to the east city limit at 82nd Ave at the time of this agreement. Subsequent agreements have amended or supplemented the 1944 agreement. A list of these agreements identified by PDOT follows: . A 1950 agreement (Misc. Contract and Agreement No. 1197) addresses cost sharing, installation and maintenance of traffic signals installed on Powell Blvd. . A 1978 agreement (Misc. Contract and Agreement No. 6688) addresses construction, operation and maintenance for the Powell Blvd Phase I Project from Ross Island Bridge to SE 50th Ave. . A 1978 agreement (Misc. Contract and Agreement No. 6698) covers the off-street parking lots on Powell Blvd near 21st Ave north of Powell Blvd and near 27th Ave south of Powell Blvd as a part of the Powell Blvd Phase I Project. . A 1980 agreement (Misc. Contract and Agreement No. 7219) that covers construction, operation and maintenance for Powell Blvd from 50th Ave to 92nd Ave. . A 1984 agreement that amended the 1980 Agreement (Misc. Contract and Agreement No. 7219) for Powell blvd from 50th Ave to 92nd Ave. It modifies maintenance responsibilities of the State and City as they apply to the traffic signals installed on Powell Blvd at 86th Ave and 92nd Ave.

Inner Powell Boulevard Policy Background and Existing Conditions 23 The following summary of State and City maintenance responsibilities is based on a review of these contracts and agreements adopted by the State and City.

Table 3: Maintenance Responsibilities Right-of-way Element Responsible Party and Location Roadway “curb to curb” ODOT (Ross Island Bridge to 174th Ave) Exception: Landscaped medians between SE 50th Ave and 92nd Ave Landscaped medians City of Portland (SE 50th Ave and 92nd Ave) Right-of-way outside of the curbs City – Maintain, supervise and care for all landscaped areas lying back of the curb lines. Maintain sidewalk corner radii only. (Per 1944 Agreement)

Abutting property owners – Maintain sidewalks and landscaping adjacent to their property. Parking Lot Areas City – Assumes at its sole expense all jurisdiction, Including parking lots near 21st maintenance and control of street connections and off- Ave north of Powell Blvd and near street parking areas. 27th Ave south of Powell Blvd and parking lots south of Powell between SE 53rd Ave and 79th Ave. Traffic Signals City – Maintenance responsibility (SE Milwaukie Ave to 82nd Ave) ODOT – Shares costs incurred in accord with the “Policy Statement for Cooperative Traffic Control Projects” Traffic Signals ODOT – assumes responsibility and payment for all (SE 86th Ave, SE 92nd Ave, I-205 costs of maintenance for the inter-connected traffic ramps and all signals east of I-205 signal system along Powell Blvd east of 82nd Ave. except at SE 174th Ave) City – pays all costs of electrical energy consumed in operation of the traffic signals on Powell Blvd at 86th and 92nd Avenues Signs ODOT – Erect and maintain all directional and informational traffic or traffic-control signs, except street-name signs, automatic traffic control signals, parking signs, parking stripes and painted curbs; provided that the State shall at its cost paint and maintain necessary traffic lane stripes.

City – Erect and maintain all street-name signs. Erect and maintain all necessary signs for the regulation of parking motor vehicles.

Inner Powell Boulevard Policy Background and Existing Conditions 24 School and pedestrian crossing ODOT signs Lane Striping ODOT Pavement Markings ODOT Exceptions: parking stall layout and school and pedestrian crosswalks Pavement Markings for Parking, City of Portland School and Pedestrian Crosswalks Street Lighting City – Maintenance responsibility.

ODOT – Shares costs incurred in accord with the “Policy Statement for Cooperative Traffic Control Projects” Curbs City of Portland Storm water sewer systems City – Maintain all storm sewer systems, including all inlets, and make available to the State without charge the use of any storm sewers installed in connection with or serving streets involved in this agreement Sweeping City of Portland Snow Removal ODOT Roadway Structures Uncertain, depends

Ross Island Bridge ODOT SE 17th Ave Railroad Underpass Uncertain

CURRENT MAINTENANCE PRACTICES ODOT maintains the roadway along Powell Blvd, curb to curb, from the Ross Island Bridge to I- 205. ODOT also maintains the landscaping at the east end of the Ross Island Bridge.

The City of Portland Bureau of Maintenance (BOM) maintains the landscaped medians from 52nd Ave to 92nd Ave on Powell Blvd. BOM maintains the parking areas and sound walls/berms adjacent to the parking areas on the south side of Powell. Anything that does not have a sound wall or a parking area is the responsibility of the property owner. All of the north side of Powell Blvd is the adjacent property owner’s responsibility. Generally, maintenance of the sidewalk is also the responsibility of the adjacent property owner.

BOM maintains the landscaped areas on each side in the pedestrian overpass at 9th Ave and cleans off the overpass. BOM maintains the pedestrian walkway along the railroad underpass at 17th Ave on the south side of Powell. BOM has maintenance responsibility for the bus stop with some landscaping at 12th Ave, but it is not maintained due to budget.

Inner Powell Boulevard Policy Background and Existing Conditions 25 Existing Stormwater Facilities: Powell Blvd. between the Ross Island Bridge and I-205 drains to a combination of combined (sanitary and storm) sewers, storm sewers, and sump systems. Generally, the runoff from Powell Blvd. between the Ross Island Bridge and 82nd Ave. drains to City owned and maintained combined sewers. Between 82nd Ave and I-205, Powell drains to State owned and maintained sump systems.

The fact that Powell is a State Highway complicates the ownership and maintenance responsibilities for the drainage facilities serving it. The “City of Portland & State of Oregon Highway Division Agreement of 1944” divides maintenance responsibility between the two agencies for many of the State Highways within the City Limits of 1944 (including Powell Blvd from the Ross Island Bridge to SE 82nd Ave). Under terms of the 1944 Agreement the City has maintenance responsibility for the storm sewers and combined sewers that are part of the City’s system while the State maintains the street surface. The State owns and maintains the drainage facilities serving Powell east of 82nd Ave.

Inner Powell Boulevard Policy Background and Existing Conditions 26 Street Design Standards

STREET DESIGN STANDARDS MATRIX Most of the Inner Powell Blvd Streetscape project design considerations and criteria are illustrated in the recently completed ODOT preservation project on Powell Blvd, between the Ross Island Bridge and SE 50th Avenue. The preservation project was completed in the summer of 2005. The project was primarily a paving project, but it addressed other subjects as well; included ADA accessibility, pedestrian crossing enhancements, median island reconstruction, access management, obsolete driveway closure, curb return adjustments, and street tree installation. By its nature the preservation project did not attempt to exhaust the full range of possible changes on Powell, but the result illustrates many of the design criteria that should be kept in mind during the creative Inner Powell Blvd Streetscape planning process.

The following matrix lists the parameters, locations where each parameter influence features of the ODOT preservation project. This street design standards matrix will guide streetscape design for Inner Powell Blvd. ODOT also has a process for design exceptions to the standards as a means of ensuring good engineering judgment where constraints don’t allow standard designs.

Street Design Standards Matrix Parameter Preservation Project Criteria Basis of Design Applications Design and Posted AASHTO Green Speed 35 mph book and ODOT  Posted Speed 40 mph Highway Design  85th Manual Percentile Speed

Sight Distance AASHTO Green  Stopping Signal visibility. Tree Stopping sight distance book and ODOT Sight limb. for 40 mph design speed Highway Design Distance is 305’, with adjustments Manual for uphill and downhill grades

 Intersection Crash history is the Varies with vehicle Sight primary indicator of acceleration Distance adequate intersection sight characteristics and distance at existing intersection geometry driveways and minor cross streets.

Inner Powell Boulevard Policy Background and Existing Conditions 27 Parameter Preservation Project Criteria Basis of Design Applications Design Vehicle Generally a single Minimum: Portland universal design vehicle is  SU-30 trucks at Transportation (For a diagram assumed, but might vary minor cross street System Plan detailing Design with unique circumstances. intersections and Vehicles see Page Assumptions about how driveways. 32) the design vehicle is  Interstate trucks at maneuvered vary with major arterial circumstances. See intersections “Design Vehicle Turning” Design Vehicle WB -67 Highway Design Manual Lane Widths Maintain existing lane AASHTO Green  Through widths. 12’ book and ODOT Lanes 12’ Highway Design  Left Turn 14’ Manual. Lanes Standard Plan-  Right Turn RD215 and RD222 Lanes Cross Slope Walking surfaces should be The preferred cross slope Portland relatively level. for the entire paved Pedestrian Design sidewalk corridor is 1:50. Guide If a greater slope is anticipated because of unusual topographic or existing conditions, the design should maintain the preferred slope of 1:50 within the entire Through Pedestrian Zone, if possible. Curbs  At gutters Gutter line curbs already Optimum curb exposure ODOT Highway existed. is 6” above the gutter Design Manual line. Curb’s base extends down to subgrade

 On islands With no landscaping: Island curb’s base mimic the curbs used on extends down 2-3” below the new islands between the pavement surface the Ross Island Bridge and SE 50th.

With Landscaping: Curb base extends down Full depth curb standard. to subgrade.

Inner Powell Boulevard Policy Background and Existing Conditions 28 Parameter Preservation Project Criteria Basis of Design Applications

Corner Curb Returns Most curb returns already Evidence of damaged AASHTO Green exist. Consider changing a curbs and sidewalks book and curb return radii if it ODOT Highway addresses a verifiable Design Manual problem. and Make sure an increased Pedestrian Design corner radius and its Guide sidewalk fits in the available right-of-way. The smaller the curb radius, the better for pedestrians. Design Vehicle Generally: AASHTO turning AASHTO Green Turning Left turns must be made templates book and  Turns at into the receiving lanes ODOT Highway major without encroaching on the Design Manual intersections cross street’s opposing lanes. Right turns must be made from the curb lane without encroaching on the cross streets opposing lanes.  Turns from minor streets Right turns must be made and without encroaching on driveways Powell’s opposing lanes.

 Turns to Turns may use the entire minor streets width of the minor street and driveways Length of Transition The desirable transition Satisfy the standard when Standard Plan and Tapers for Left lengths for maneuvering possible, otherwise RD215 or Turn Lanes into turn lanes can rarely pursue design exceptions AASHTO p. 832 be satisfied on Powell. when necessary. Existing striping does not satisfy desirable standards.

Inner Powell Boulevard Policy Background and Existing Conditions 29 Parameter Preservation Project Criteria Basis of Design Applications Access spacing 275’ OHP District Title 17.28.110 of  Public Street Existing cross street and 325’ the Portland City  Driveway driveway access can be Code and Portland modified by applying - Driveways on corner Standard various forms of islands lots must be at least 25’ Construction and median barriers. from the corner. Specs Access to private property - Vehicles must be able is rarely denied, but to enter and exit occasionally limited. driveways in a forward motion. - ODOT and PDOT have standard design drawings Stacking Lane Left-turn lanes should be Turn lanes should be able Synchro capacity Requirements long enough to to accommodate the 95th analysis (LT Lane lengths) accommodate all but the longest queues of a longest queues. typical day Bike Lanes Currently there are no bike Minimum bike lane Portland Bicycle lanes on Powell width: 5 ft Master Plan Appropriate bike lane width on Powell given During the update traffic speed and volume: of the Bicycle 6 ft Master Plan, the At intersections with City is considering dedicated Right Turn to increase the lane, add lanes are standard bike lane preferred. Drop lanes are width to 6.5 ft. not. Pedestrian and Locations of specially- Each potential crossing Portland bicycle crossings treated crossings depend on should be evaluated as a Transportation the TSP, popularity, unique case and System Plan and complexity, and safety treatment alternatives Pedestrian Design history. should be tailored Guide and Choice of treatment accordingly. Creating Livable depends on conditions. Streets Provide pedestrian crossings at all transit stops striped crosswalks, pedestrian refuges and curb extensions, as appropriate. Sidewalks The back of the sidewalk is 12’ minimum width Portland along City typically 12’ from curb. Pedestrian Design Walkways The first 4’ behind the curb Typically concrete, Guide, Portland could be concrete, street scored to match historic Transportation trees in tree wells or patterns System Plan, and

Inner Powell Boulevard Policy Background and Existing Conditions 30 Parameter Preservation Project Criteria Basis of Design Applications planting strip. Portland Standard Construction Specs Sidewalk Curb Locate curb ramps at every There are a number of Portland Ramps intersection location where factors that influence the Pedestrian Design there is a crosswalk, number and design of Guide whether or not the curb ramps at a corner, crosswalk is indicated with including sidewalk pavement markings. width, corner radius, Ideally, there should be a adjacent materials and separate curb ramp for crosswalk location. each crosswalk at a corner, that is, two ramps at most corners. At “T” and off set intersections, a curb ramp should be located at each end of the each legal crosswalk. Traffic Control Establish traffic control Manual on  Traffic signing Satisfy ODOT standards features that satisfy the Uniform Traffic  Pavement Manuals. Control Devices markings and Satisfy ODOT standards and ODOT Traffic striping Use materials and Manual. A host of  Parking City-managed to ODOT’s installation techniques to ODOT standard management satisfaction satisfy the agency that drawings. City-managed to ODOT’s will maintain/operate  Traffic Signals satisfaction each feature. Landscaping n.a. As individual properties Private property:  Private develop, standard-width Title 33 perimeter property sidewalk and standard- landscaping and  Sidewalk spaced street trees are building area required. orientation  Median requirements. islands Median landscaping must Street tree spacing accommodate design and species sight distances. determined by City Forester. Transit Depends on each stop’s TriMet  Bus shelters popularity.  Bus pull-outs Buses serve passengers  Bus stop from the right-most traffic spacing lane  Bus priority Through moves from right- turn lanes, ITS features

Inner Powell Boulevard Policy Background and Existing Conditions 31 Parameter Preservation Project Criteria Basis of Design Applications Street Lighting n.a. Painted non galvanized 35’-40’ steel poles with cobra head luminaires, spaced 125’ to 175’ apart.

Dimensions of Typical Design Vehicles

Inner Powell Boulevard Policy Background and Existing Conditions 32 DEVELOPMENT REVIEW DESIGN STANDARDS The following standards apply to new development on private property. The requirements include standards for improving the right-of-way concurrent with development.

Powell Blvd is designated a Major City Traffic Street, Major Transit Priority Street, City Walkway, Major Emergency Response Street, Major Truck Street, and as a Regional Corridor in the Transportation System Plan. There are no designated Pedestrian Districts on Powell between the Ross Island Bridge and the City Limits

1. Curbs & Sidewalks The Portland Pedestrian Design Guide, The Transportation System Plan and Standard Construction Specifications provide the definitions and guidelines for sidewalk corridors. The sidewalk corridor is the portion of the pedestrian system from the edge of the roadway to the edge of the right of way, generally along the sides of the street, between street corners. The sidewalk corridor functions to provide an environment for walking that is separated from vehicle movement. The curb provides that separation on improved streets. The purpose is to plan and complete a pedestrian network that increases the opportunities for walking to shopping and services, schools and parks, employment and transit.

City of Portland Office of Transportation Development Review requires an owner/applicant to dedicate and construct pedestrian corridors to the following standards as a condition of approval of land use proposals, land divisions, conditional uses, zone changes or for building permit approval.

The recommended curb height as called out in City Standard Construction Specifications is +/- 6”. Grinding and repaving roadway surfaces may change the curb exposure by an inch or so for infill development.

The recommended pedestrian corridor for a designated City Walkway, not in a pedestrian district is 12’ wide. That accommodates a 6” wide curb, 4’ furnishing zone/ planting strip, for elements such as street trees, signal poles, utility poles, street lights, controller boxes, hydrants, signs parking meters, driveway aprons, grates and hatch covers. The remaining 1.5’ is the frontage zone which allows pedestrians a comfortable “shy” distance from the building fronts in areas where buildings are at the lot line or from elements such as fences and hedges on private property. The frontage zone may also accommodate elements that would normally be in a furnishing zone if none exists. For example, transit shelters and benches, signal and street lighting poles and controller boxes. Private temporary uses such as sidewalk cafes may occupy the frontage zone so long as the through pedestrian zone is maintained.

A 6’ wide sidewalk, through pedestrian zone is recommended for designated City Walkways. The surface should be firm and stable, resistant to slipping and allow for ease of passage by people using canes, wheelchairs or other devices to assist mobility. Sidewalks are generally constructed of Portland cement concrete. The surface of concrete sidewalks should be scored to match historic patterns within a neighborhood or district where appropriate. The walking

Inner Powell Boulevard Policy Background and Existing Conditions 33 surfaces should be relatively level. The preferred cross slope for the entire paved sidewalk corridor is 1:50. Cross slope should not exceed 2% the design criteria for ADA.

Corner radii depend on several variables including but not limited to the width of adjacent sidewalk corridors, width and classification of adjacent streets, type of typical vehicle e.g. heavy truck or bus traffic and speed limits. They can range from 15’ to 30.’ The smaller the curb radius, the better it is for pedestrians.

2. Driveways Transportation/Development Review implements the following codes and policies as conditions of development, notifying the applicant what to expect with building plan review. Street System Management/Plan Review also applies these rules with buildings permits review.

As stated in Title 17.28.110 a driveway is a concrete way for vehicular traffic extending from the roadway to the property line across a sidewalk, whether or not such sidewalk is improved for the purpose of providing access to parking or maneuvering space on abutting property.

The recommended locations and allowable widths of driveways are also in Title 17.28.110. However, the City Engineer or City Traffic Engineer may establish conditions regarding width that are deemed necessary to ensure the safe orderly flow of pedestrian and vehicular traffic based on evaluation of speeds, volumes, sight distance and any other transportation factors that are relevant.

Driveways should be located a minimum 25’ from a property corner at an intersection and where two driveways are allowed for one property they must provide a minimum 5’ of straight curb between them. Combined driveway/curb cuts are required for every two attached dwellings accessing the same street. However, since Powell is a Collector Traffic Street, for any proposal other than a single family dwelling, Transportation would require a driveway to accommodate access and egress in a forward motion. Transportation would recommend locating all access for a property with frontage on both Powell and a local service street, to the local service street.

Ramps and wings transition the driveway throat/approach from the roadway to full curb and sidewalk height. Tri-angular shaped wings are typical for residential use; rectangular ramps are more common for commercial uses. The dimensions vary depending on location and width of a sidewalk or width of a planting strip or a swale as well as the proposed use of the site, e.g. if large truck use is anticipated.

The desirable driveway connection slope is 10% or flatter however, the sidewalk section of the driveway must meet ADA with a cross slope of 2% or less.

3. Private Property Title 33, Planning and Zoning provides the requirements for locating development on private property including but not limited to parking, landscaping, building size and orientation. Title 33 also has the approval criteria for service bureaus to review land use proposals.

33.641 – Land Division - Transportation Impacts, allow the traffic impacts caused by dividing and then developing land to be identified evaluated and mitigated for if necessary. The

Inner Powell Boulevard Policy Background and Existing Conditions 34 transportation system must be capable of safely supporting the proposed development in addition to the existing uses in the area. Evaluation factors include; street capacity and level –of-service; vehicle access and loading’ on-street parking impacts; the availability of transit service and facilities and connections to transit; impacts on the immediate and adjacent neighborhoods; and safety for all modes.

33.815.100 – Conditional Use has similar transportation approval criteria.

33.855.050 – Zone Change criteria requires adequate public services based on the projected service demands of the site and the ability of the public services to accommodate those demands.

33.266 Parking and Loading establishes the standards for the amount, location and development of motor vehicle parking, standards for bicycle parking and standards for on-site loading areas. It notes that the Office of Transportation reviews the layouts of parking area for compliance with the curb cut and access restriction of 17.28.110.

33.805 – Adjustments provide no transportation related approval criteria. However, requested adjustments to parking requirements are often not supported by Transportation Development Review. Examples:

An adjustment to waive required on site parking may not be supported by Transportation due to the negative impact to on-street parking

An adjustment to waive required on-site loading may not be supported due to the negative impact of loading occurring in the public right of way on on-street parking.

An adjustments to allow required landscaping to occur in the right of way are not supported as there are no guarantees the portion of the right of way proposed for landscaping will not be needed in the future for public infrastructure.

Transportation requirements for land divisions are assured by dedication on the plat and contracts, fees and performance guarantee which must be provided prior to final plat approval.

Transportation requirements for conditional uses or zone changes are implemented at the time of development, with submittal of building plans. Approval of the plans is withheld pending any necessary revisions, dedication and guarantees.

PORTLAND PEDESTRIAN DESIGN GUIDE The purpose of Portland’s Pedestrian Design Guide is to integrate the wide range of design criteria and practices into a coherent set of standards and guidelines that, over time, will promote an environment conducive to walking. The Pedestrian Design Guide includes guidelines for sidewalk corridors, street corners, crosswalks, pathways and stairs based on street modal classification. Some of these standards and guidelines are included in the Design Matrix and sections above. Every project that is designed and built in the City of Portland should conform to these guidelines. Site conditions and circumstances often make applying a specific solution difficult. The Pedestrian Design Guide should reduce the need for ad hoc decisions by providing a published set of guidelines that are applicable to most situations. Throughout the guidelines,

Inner Powell Boulevard Policy Background and Existing Conditions 35 however, care has been taken to provide flexibility to the designer so that she or he can tailor the standards to unique circumstances. Even when the specific guideline cannot be met, the designer should attempt to find the solution that best meets the pedestrian design principles described in the Pedestrian Design Guide.

PORTLAND FREIGHT MASTER PLAN The Freight Master Plan, Chapter 6, provides guidance for designing streets in regards to truck access. The plan identifies where streets, particularly intersections, should be “designed for” trucks versus designed to “accommodate” trucks based on street modal classifications, adjacent land use and truck activity. When designing to fully accommodate truck movements through an intersection, the design established a travel path that allows the selected vehicle to remain entirely within its designated lane or lanes as it completes its turn. With respect to accommodating a truck in a tight street environment, the design assumes more latitude for the vehicle path, including encroachment on adjacent lanes approaching and/or departing the intersection.

The “design for” approach should be applied to Regional Truckways, Priority Truck Streets, Major Truck Streets, and in Freight Districts. In the case of Major Truck Streets, the “design for” approach must be balanced with other street design considerations when the street is also designated as a City walkway or located in a Pedestrian District. Powell Blvd is a Major Truck Street and City Walkway.

METRO STREET DESIGN GUIDELINES The handbook Creating Livable Streets: Street Design Guidelines for 2040 (November 1997) by Metro provides the Portland region with appropriate regional street design guidelines to support the goals in the Metro 2040 Growth Concept and the Regional Transportation Plan (RTP). The guidelines serve as tools for improving existing streets and designing new streets. The design guidelines are not standards; they are recommendations intended to complement existing standards and guidelines in the implementation of the conceptual street system in the RTP.

The subsequent handbook by Metro, Green Streets: Innovative Solutions for Stormwater and Street Crossings (June 2002), builds upon the Creating Livable Streets handbook. The goal for high level of street connectivity identified in the RTP can potentially conflict with protecting and restoring streams and wildlife corridors. The handbook addresses this potential conflict by presenting methodologies and design solutions that protect the quality of the region’s stream system while providing for an efficient multi-modal transportation system. The handbook communicates basic stormwater management concepts, case study examples of how this approach has been successful elsewhere, practical design solutions and methodologies, and a strategy for implementation of “green” streets in the Portland metro region.

Inner Powell Boulevard Policy Background and Existing Conditions 36 Existing Conditions

GENERAL DESCRIPTION From the Ross Island Bridge to I-205, Powell Blvd is typically a four-lane roadway with two lanes in each direction. There is either a continuous center turn-lane or center turn-lane refuges between landscaped medians. There are no bike lanes along Powell Blvd. There is typically no on-street parking along Powell. The only on-street parallel parking along Powell Blvd is between SE 22nd Ave and 25th Ave. There is a public parking lot near 21st Ave north of Powell Blvd and another near 27th Ave south of Powell Blvd.109 parking spaces are provided at limited locations in nine public parking lots between SE 53rd Ave and 79th Ave. Sidewalks along Powell vary in width. Between the Ross Island Bridge and 50th Ave the sidewalks are typically 10 feet wide, though in some instances they narrow to 6 feet wide. The streets are lined with street trees, but do not have planter strips and some trees are missing from tree wells. West of 50th Ave, there are no street trees in the median refuge islands. East of 50th Ave, the sidewalks vary in width from 6 to 10 feet. Additionally, east of 50th Ave, the sidewalks are buffered from the roadway with planter strips that range in width from 6 to 21 feet, and the center medians are landscaped and lined with trees.

The posted Speed Limit on Powell Blvd is 35 miles per hour (mph).

RECENT IMPROVEMENT PROJECTS

City of Portland 82nd Ave Signal Reconstruction In 2004, the City replaced the traffic signal at Powell Blvd and 82nd Ave to improve traffic safety. The improvements consisted of the installation of detection to fully actuated operation, providing for pedestrian detection, and replacement of the existing signals with new mast arm mounted signal displays. The project was conducted and funded as a part of the Hazard Elimination System Program (HEP).

TriMet Bus Streamline Project During the recent TriMet Bus streamlining project for Busline 9, TriMet relocated several bus stops. These bus stops were typically relocated to blocks were the bus now stops in the travel lane. TriMet provided some transit stop amenities including paved waiting areas beyond the sidewalk and shelters. Where some of the bus stops were removed, the curb was realigned and a landscaped planter strip replaced the bus pull-out lanes. GET INFO FROM DAVID ZAGEL at TRIMET.

ODOT Phase I Preservation Project During the ODOT Phase I Preservation Project in 2005, ODOT provided several new pedestrian and bicycle improvements between the Ross Island Bridge and 52nd Ave. ODOT upgraded

Inner Powell Boulevard Policy Background and Existing Conditions 37 pedestrian curb ramps where there was previously no ramp or a non-functioning ramp. ODOT also installed new median refuge islands at the following locations: . SE 13th Ave to 14th Ave . SE 28th Ave . SE 36th Place . SE 45th Ave

STREET CROSS-SECTION The street cross-sections along Powell Blvd vary greatly from the Ross Island Bridge to I-205. Segments of Powell with similar cross-sections are described below. Detailed right-of-way maps of the corridor are located in Appendix C.

Ross Island Bridge to SE 20th Ave: The total right-of-way ranges from approximately 80 feet to 150 feet wide. The roadway is 72 feet and wider. There are typically two travel lanes in each direction and a center turn lane refuge at some intersections. Sidewalk widths range from 7 to 10 feet with street trees. There is a pedestrian overpass at 9th Ave. There is a grade separated pedestrian path along the railroad underpass at 17th Ave that stretches from 15th Ave to 20th Ave. There are median islands at the following locations: . SE Milwaukie . SE 13th Place to 14th Ave

SE 20th Ave to 26th Ave: The total right-of-way is 87 feet wide. The roadway is 67 feet wide with two travel lanes in each direction with a continuous center turn lane. Along the south side of roadway, adjacent to Powell Park between SE 21st and 26th Ave, there is 7 feet of additional roadway. Between SE 22nd Ave and 25th Ave, on-street parallel parking is allowed on this south side of the street. Near the intersections, it becomes a bus pull-out and right-turn lane. The sidewalks are 10 feet wide with street trees on the north side of Powell Blvd. The sidewalk width ranges from 6 to 10 feet with street trees on the south side of Powell Blvd. There is a median island at the following location: . SE 24th Ave

Inner Powell Boulevard Policy Background and Existing Conditions 38

SE Powell Blvd Cross-section: SE 22nd Ave to 25th Ave

SE 26th Ave to 37th Ave: The total right-of-way is 80 feet wide. The roadway is 60 feet wide with two travel lanes in each direction with a continuous center turn lane. The sidewalks are 10 feet wide with street trees on both sides of Powell Blvd. There are median islands at the following locations: . SE 28th Ave . SE 34th Ave . SE 36th Pl

SE Powell Blvd Cross-section: SE 26th Ave to 37th Ave

SE 37th Ave to 42nd Ave: The total right-of-way ranges from approximately 80 feet to102 feet wide. The roadway width ranges from 60 feet to 82 feet as Powell approaches the intersection with 39th Avenue. There are two travel lanes in each direction with a continuous center turn lane

Inner Powell Boulevard Policy Background and Existing Conditions 39 and additional right turn lanes and merging lanes. The sidewalks are 10 feet wide with street trees on both sides of Powell Blvd.

SE 42nd Ave to 49th Ave: The total right-of-way is 78 feet wide. The roadway is approximately 58 feet wide with two travel lanes in each direction with a continuous center turn lane. The sidewalks are 10 feet wide with street trees on both sides of Powell Blvd. There is a median island at the following location: . SE 45th Ave

SE 51st Ave to 66th Ave: The total right-of-way ranges from approximately 90 feet to 160 feet wide. The roadway is 60 feet wide. There is 25 feet wide in each direction with two travel lanes. A 10-foot center landscaped median with center turn-lane refuges divides the roadway. Along the north side of Powell Blvd, the sidewalks are 7 feet wide with an 8-foot wide planter strip with street trees. There are 9-foot bus pull-outs and sidewalks reduced to 6 feet approximately every other block. Along the south side of Powell Blvd, the sidewalks vary from approximately 7 feet to 10 feet in width. The sidewalks are generally buffered from the roadway by an 8-foot or wider planter strip or 9-foot bus pullout lane. The right-of-way is up to 70 feet wider where there are frontage roads, public parking pockets, landscaped setback, berm and masonry wall barriers.

SE Powell Blvd Cross-section: SE 51st Ave to 66th Ave

SE 66th Ave to 74th Ave: The total right-of-way ranges from approximately 90 feet to 150 feet wide. The roadway is 60 feet wide. There is 25 feet wide in each direction with two travel lanes. A 10-foot center landscaped median with center turn-lane refuges divides the roadway. Along the north side of Powell Blvd, the sidewalks are 7 feet wide, with an 11-foot wide planter strip with street trees and a 2-foot buffer between the sidewalk and property line. At the east end of approximately every other block, there is a 9-foot bus pull-out lane and sidewalk reduced to 6 feet. Along the south side of Powell Blvd, the sidewalks vary from approximately 5.5 feet to 10 feet in width. The sidewalks are generally buffered from the roadway by a 6-foot or wider planter strip or 9-foot bus pullout lane. Generally, there is a 10-foot to 20-foot wide landscaped berm with masonry wall that acts as a sound barrier between Powell Blvd and the adjacent neighborhood. The right-of-way is up to 60 feet wider where there are frontage roads, public parking pockets, landscaped setbacks and barriers.

Inner Powell Boulevard Policy Background and Existing Conditions 40

SE 74th Ave to 80th Ave: The total right-of-way ranges from approximately 90 feet to 150 feet wide. The total roadway is 60 feet wide. There is 25 feet wide in each direction with two travel lanes. A 10-foot center landscaped median with center turn-lane refuges divides the roadway. Along the north side of Powell Blvd, the sidewalks are 7 feet wide, with a 21-foot wide planter strip with street trees and a 2-foot buffer between the sidewalk and property line. At the east end of every third block, there is a 9-foot bus pull-out lane with paved bus stop or a 10-foot planter strip between the sidewalk and roadway. Along the south side of Powell Blvd, the sidewalks vary from approximately 5.5 feet to 10 feet in width. The sidewalks are generally buffered from the roadway by a 6-foot or wider planter strip or 9-foot bus pull-out lane. Generally, there is a 10-foot to 20-foot wide landscaped berm with masonry wall that acts as a sound barrier between Powell Blvd and the adjacent neighborhood. The right-of-way is up to 60 feet wider where there are frontage roads, public parking pockets, landscaped setbacks and barriers.

SE 82nd Ave to 90th Pl: The total right-of-way ranges from approximately 95 feet to 105 feet wide. The total roadway is 60 feet wide. There is 24 feet wide in each direction with two travel lanes. A 12-foot center landscaped median with center turn-lane refuges divides the roadway. Along the north side of Powell Blvd, the sidewalks are 7 feet wide, with a 13-foot wide planter strip with street trees. At the east end of some blocks, there is a 9-foot bus pull-out lane and no planter strip buffer. Along the south side of Powell Blvd, the sidewalks are 7 feet wide, with an 8-foot wide planter strip with street trees. At the end of some blocks, there is a 9-foot bus pull- out lane and no planter strip buffer.

Between SE 85th Ave and 92nd Ave, along the north side of Powell Blvd, there is about a 10-foot wide reserve buffer between the sidewalk and property line. It is typically landscaped or occupied by the adjacent property owner.

SE Powell Blvd Cross-section: SE 85th Ave to 90th Pl

Inner Powell Boulevard Policy Background and Existing Conditions 41 Sidewalks and Pedestrian Crossings Sidewalks along Powell vary in width as described in the section above. Between the Ross Island Bridge and 52nd Ave the sidewalks are lined with street trees, but do not have planter strips. There are several tree wells that no longer have trees. Some have been filled with concrete. The sidewalks vary in width from 6 feet to 10 feet. Between 52nd Ave and 92nd Ave, the sidewalks are range in width from 6 feet to 10 feet. In this segment, the sidewalks are buffered from the sidewalk with planter strips that vary in width from 6 feet to 21 feet. East of 92nd Ave the sidewalks are generally 8.5 feet wide.

There is a pedestrian overpass crossing Powell Blvd at SE 9th Avenue. Median refuge islands are located throughout the corridor to provide enhanced pedestrian crossings. These median refuges islands are identified on the corridor base maps located in Appendix C.

The railroad underpass at SE 17th provides a separate pedestrian path that does not follow the roadway. The slope and length between level landings along the pedestrian path exceed current standards for Americans with Disabilities Act.

There is a pedestrian and bicycle overpass parallel to I-205 Freeway providing an above-grade crossing of the I-205 off-street path over Powell Blvd.

The following locations have marked crosswalks with ladder/zebra striping: . SE 13th Pl (Pedestrian activated signal) . SE 24th Ave . SE 28th Ave . SE 31st Ave . SE 34th Ave . SE 36th Place . SE 42nd Ave (Full traffic signal) . SE 45th Ave . SE 47th Ave (Pedestrian activated signal) . SE 54th Ave . SE 69th Ave (Full traffic signal)

An inventory of curb ramp conditions at intersections in located is Appendix D. The inventory identifies locations where there are no curb ramps, dual curb ramps, one diagonal curb ramp, and a single curb ramp in only one direction.

Bicycling Environment in the Corridor Powell Blvd is not striped with bicycle lanes. Parallel to Powell Blvd, there are several streets designated as Bike Boulevards which are not currently built. There are a couple existing bikeways parallel to Powell Blvd in the vicinity. To the north of Powell blvd, the Clinton- Woodward Bikeway is developed as a Bike Boulevard. South of Powell Blvd, bicycle lanes are striped on Gladstone between 26th Ave and 42nd Ave. This Bikeway is proposed to extend along

Inner Powell Boulevard Policy Background and Existing Conditions 42 SE Boise to 73rd Ave. A map of existing and proposed Bikeways in the vicinity of Powell Blvd is located in Appendix E.

Existing bikeways currently cross Powell Blvd at SE 26th Ave (bicycle lanes) and 42nd/43rd Aves (bike boulevard treatment transitioning to bicycle lanes south of Powell Blvd). There are funded bicycle lanes on 92nd Ave south of Powell Blvd that are currently under construction. The I-205 off-street path runs along I-205. There is a pedestrian and bicycle overpass parallel to I-205 Freeway providing an above-grade crossing of the I-205 off-street path over Powell Blvd. The Springwater Corridor off-street path runs under the Ross Island Bridge. There are proposed Bikeways crossing Powell at 9th Ave, Milwaukie transitioning to 11th/12th Ave, 33rd Ave, 52nd Ave and 71st/72nd Ave.

Driveways There are many properties with driveway access from Powell Blvd. Some have multiple driveways, including driveways on cross streets. There are also some driveways that may no longer be in use.

Parking There is typically no on-street parking along Powell. The only on-street parallel parking along Powell Blvd is between SE 22nd Ave and 25th Ave. There is a public parking lot near 21st Ave north of Powell Blvd and another near 27th Ave south of Powell Blvd. Parking is provided at limited locations in nine public parking lots between SE 53rd Ave and 79th Ave. These public parking lots were built as a part of the Phase II Powell Boulevard Project in 1982. A total of 109 public parking spaces are located in these parking lots. The table below provides an inventory of the parking supply in the public parking lots. Most of the cross streets along Powell Blvd have parking on each side, except for the major streets: Milwaukie, 39th Ave, Foster, 82nd Ave and 92nd Ave.

Table 4: Public Parking Lots in the Right-of-way on Powell Blvd Location Spaces Descriptions 53rd – 55th 25 Two sections with 9 and 16 spaces 56th – 57th 10 59th (1/2 block) 18 64th – 65th 9 65th – 66th 9 67th (1/2 block) 9 74th – 75th 13 76th – 77th 13 77th – 79th 21 Two sections with 10 and 11 spaces Total 109

Inner Powell Boulevard Policy Background and Existing Conditions 43 TRANSIT TriMet provides frequent transit service along Powell Blvd with Busline 9 between downtown Portland and Gresham Transit Center. The Busline 9 is a Frequent Service Bus, which run buses every fifteen minutes or better during the day, every day. Additionally, TriMet provides rush- hour service with Busline 66 between Hollywood Transit Center and Marquam Hill, which travels on Powell Blvd from SE 39th Ave across the Ross Island Bridge. Busline 17 and Busline 19 travel briefly along Powell Blvd to access the Ross Island Bridge. Busline 70 intersects Powell Blvd and briefly travel on Powell Blvd between SE 17th Ave and SE Miwaukie Ave. Maps of the transit service along and intersecting with Powel Blvd are located in Appendix F.

There are several buslines that cross Powell Blvd, including the following: . Busline 10 at SE 26th Ave . Busline 74 and Busline 75 at SE 39th Ave . Busline 14 at SE 50th Ave/Foster Rd . Busline 71 at SE 52nd Ave . Busline 72 at SE 82nd Ave

The future MAX Light Rail Green Line will run along I-205 with a station and Park and Ride at Powell Blvd. Service is expected to begin in Fall 2009.

SEWER AND STORMWATER INFRASTRUCTURE Powell Blvd. between the Ross Island Bridge and I-205 drains to a combination of combined (sanitary and storm) sewers, storm sewers, and sump systems. Generally, the runoff from Powell Blvd. between the Ross Island Bridge and 82nd Ave. drains to City owned and maintained combined sewers. Between 82nd Ave and I-205, Powell drains to State owned and maintained sump systems. Maps of the existing sewer and stormwater infrastructure along Powell Blvd are located in Appendix G.

DEVELOPMENT ACTIVITY ALONG POWELL BLVD There has been a noted increase in development activity and request for zone changes in the Powell Blvd corridor, particularly between SE 21st Ave and 34th Ave. Recent development has increased the housing density south of Powell. Additional proposed development activity will likely result in more medium density housing. This will likely increase the amount of pedestrian activity on Powell Blvd and transit ridership.

Catholic Charities is playing a significant role in this effort. They built fifty units at Kateri Park, located one block south of Powell Blvd between SE 28th Ave and SE 28th Pl. Catholic Charities plans to build 82 new units and an office building across the street on the old St. Vincent De Paul site abutting Powell Blvd between SE 26th Ave and 28th Ave. The project will include single- family and multi-family housing.

There is additional medium density row house residential development activity in the vicinity. For example, REACH Community Development is currently completing construction of six row

Inner Powell Boulevard Policy Background and Existing Conditions 44 houses on SE 33rd Ave half a block south of Powell. The land is zoned General Commercial, though residential uses are allowed. The property is approximately 13,000 square feet. The density is approximately one unit per 2,000 square feet.

In June 2006, City Council approved an amendment of the Comprehensive Plan map designations and change zoning at 3500 SE 22nd Avenue and 3605 SE 26th Avenue at the request of Fred Meyer, Inc. and Allende LLC (Ordinance; LU 05-181402 CP ZC). City Council approved with several conditions the following: . Comprehensive Plan Map Amendment from Industrial Sanctuary to Mixed Employment for the property owned by Fred Meyer. . Zoning Map Amendment from General Industrial 1 (IG1) with a Buffer overlay zone, to General Employment 2 (EG2) for the Fred Meyer property and the Allende property. . Zoning Map Amendment to map a Design overlay zone on the Fred Meyer property.

As a part of the Comprehensive Plan Map/Zoning Map amendment decision Fred Meyer is willing to contribute up to $10,000.00 toward the traffic calming solutions that are arrived at and agreed upon through the Portland Office of Transportation process with the effected residents and property owners. They identified potential intersection improvements at SE 22nd Avenue/SE Powell Boulevard, and SE 21st Avenue/SE Powell Boulevard.

Currently, there is a proposal at SE Powell Blvd and 30th Ave to amend the comprehensive plan and zoning map to increase the potential density. The applicant proposes to change the zoning on a portion of the site from Attached Residential (R2.5) to General Commercial (CG). Alternatively, the applicant proposes to change the zoning on the entire site from CG and R2.5 to High Density Multi-dwelling (RH).

Inner Powell Boulevard Policy Background and Existing Conditions 45 TRAFFIC ANALYSIS The analysis of existing traffic conditions along Powell Boulevard within the study area included an assessment of traffic operational performance during the morning, midday and afternoon peak hours, and on the recent history of traffic crashes within the corridor. The morning peak hour represents a single, consecutive 60 minute period between 7 and 9 AM with the highest overall traffic volumes at each intersection. The midday peak hour reflects the highest consecutive 60 minutes between 11 AM and 1 PM, while the evening peak hour falls between 4 and 6 PM.

Traffic operations analysis focused on the majority of signalized intersections which are listed below. Other key intersections along the street include two that have pedestrian-activated signals and one that has a fire signal for emergency use by an adjacent fire station. Signalized intersections at SE 42nd, 69th, 71st and 72nd Avenues are not included in the existing conditions analysis as these are minor intersections with low turning movement volumes. The intersection of Powell Boulevard with SE 92nd Avenue was not analyzed due to on-going utility and construction at this location that impacts the movement and magnitude of traffic in the area, making it atypical in comparison with normal operating conditions.

Signalized Intersections The following intersections along Powell Blvd are controlled by traffic signals:  SE Milwaukie  SE 21st Ave  SE 26th Ave  SE 33rd Ave  SE 39th Ave  SE 42nd Ave  SE 50th Ave/ Foster Rd  SE 52nd Ave  SE 65th Ave  SE 69th Ave  SE 71st Ave  SE 72nd Ave  SE 82nd Ave  SE 86th Ave  SE 92nd Ave  I-205 Southbound Ramp  I-205 Northbound Ramp

The following additional intersections have pedestrian activated signals:  SE 13th Place  SE 47th Ave

The following intersection has a fire station signals:  SE 13th Place

Inner Powell Boulevard Policy Background and Existing Conditions 46 Traffic Volumes Existing (2006) AM, midday and PM peak hour traffic counts were collected for 11 City signalized intersections and two I-205 ramp signalized intersections along Powell Blvd from Milwaukie Avenue to I-205. As noted above, the intersection of SE 92nd Avenue and Powell Blvd was not counted and analyzed due to ongoing utility construction at the location. Because of the urban nature of the count locations, no adjustments were required for the existing condition analysis to reflect seasonal variations in levels of traffic. Traffic signal count data is provided in Appendix H.

Intersection Levels of Service (LOS) Standard Intersection levels of service (LOS) for signalized intersections are grades of A through F that are used to rate the intersection performance within a specified time period, typically the AM or PM peak hour. Assignment of a specific LOS is based on average control delay per vehicle, which is calculated using equations that take into account turning movement volumes, intersection lane geometry and traffic signal features, as well as characteristics of the traffic stream passing through the intersection, including time required to slow, stop, wait, and accelerate to move through the intersection. Progressively higher LOS reflect increasingly worse intersection performance, with higher levels of control delay and increased congestion and queues. Characteristics of each LOS are briefly described below in Table 5.

Table 5. Level of Service Definitions Average Delay/Vehicle (sec.) Level of Service Signalized Unsignalized Description A <10 seconds <10 seconds Very low delay; most vehicles do not stop. (Desirable) B >10 and <20 >10 and <15 Low delay resulting from good (Desirable) seconds seconds progression, short cycle lengths, or both. C >20 and <35 >15 and <25 Higher delays with fair progression, longer (Desirable) seconds seconds cycle lengths, or both. D >35 and <55 >25 and <35 Noticeable congestion with many vehicles (Acceptable) seconds seconds stopping. Individual cycle failures occur. E >55 and <80 >35 and <50 High delay with poor progression, long (Unsatisfactory) seconds seconds cycle lengths, high v/c ratios, and frequent cycle failures. F >80 seconds >50 seconds Very long delays, considered unacceptable (Unsatisfactory) by most drivers. Often results from over- saturated conditions or poor signal timing. Source: 2000 Highway Capacity Manual, Transportation Research Board.

The Portland Transportation System Plan has adopted LOS standards that are intended to guide roadway design and improvement priorities by establishing a threshold for determining the level of delay that is unacceptable to the community, thus triggering a transportation improvement. The current operating standards for regionally significant corridors are established in the Metro 2004 Regional Transportation Plan. According to this plan the acceptable LOS threshold varies according to the peak hour of analysis, summarized in Table 6.

Inner Powell Boulevard Policy Background and Existing Conditions 47 Table 6. Regionally Significant Corridor–Motor Vehicle Deficiency Thresholds and Operating Standards Mid-Day One-Hour Peak A.M./P.M. Two-Hour Peak Preferred Acceptable Exceeds Operating Operating Deficiency Preferred Acceptable Exceeds Standard Standard Threshold Operating Operating Deficiency 1st 2nd 1st 2nd 1st 2nd Standard Standard Threshold Hour Hour Hour Hour Hour Hour C D E E D E E F E Source: Metro 2004 Regional Transportation Plan

Two of the signalized intersections in the study area are located at ramp termini for I-205. As adopted in the 1999 Oregon Highway Plan, ODOT uses volume-to-capacity (v/c) ratios to measure state highway performance rather than intersection or roadway levels of service. Various v/c thresholds are applied to all state highways based on functional classification of these facilities. The OHP’s mobility standard on inner Powell Boulevard is a volume-to-capacity ratio of 0.99 for the two-hour traffic peak. I-205 is classified by the OHP as an Interstate highway with a v/c threshold of 0.80.

Traffic Operations The analysis of existing traffic operations for all three time periods was conducted using a Synchro traffic simulation model that was developed specifically for the inner Powell Boulevard study. Synchro is a specialized, Highway Capacity Manual-based computer software program that assists in conducting engineering analysis of intersection performance. This software requires such input values as peak hour turning movement traffic counts, intersection lane characteristics, traffic control (including phasing and timing plans at signalized locations), percentage of heavy vehicles in the traffic stream, and many other variables related to street or multi-modal travel characteristics. Synchro is useful for evaluating traffic performance for signalized and unsignalized intersections and roadways, particularly for areas where intersection operations can influence each other as traffic progresses along a street segment.

The Synchro models developed for the Inner Powell study include the field-verified geometrics and other relevant physical data for each intersection, as well as existing signal timing plans for each time period as obtained from the PDOT Traffic Signal Section and ODOT. Samples of signal timing data was also field verified. Signal timing information as incorporated into the Synchro models, followed analysis procedures outlined in the ODOT Transportation Planning and Analysis Unit’s (TPAU) guidelines. Field notes of current intersection geometry and other features affecting traffic operations are documented in Appendix I.

Tables 7 through 9 summarize existing (2006) traffic operations for the morning (AM), midday and afternoon (PM) peak hours, respectively, at the intersections along Powell Boulevard. Data in these tables includes average intersection delay, the overall intersection volume-to-capacity (v/c) ratios, and intersection levels of service. In addition to average delay, the v/c ratio is another intersection measure of effectiveness that relates the magnitude of traffic traveling through an intersection with its theoretical capacity. Ratios above 1.0 often accompany LOS E and LOS F conditions indicating inadequate capacity for one or more major movements. At

Inner Powell Boulevard Policy Background and Existing Conditions 48 intersections operating at LOS D or better, v/c ratios above 1.0 are useful indicators of potential concerns such as sub-optimal signal timing or inadequate turn lane storage.

Bold font highlights the intersections along the study corridor that are operating in excess of the identified regional standards (Table 6) or where state volume-to-capacity thresholds in the Oregon Highway Plan are exceeded. Intersection analysis worksheets are included in Appendix J.

As indicated in Table 7, the intersections of Powell Boulevard with 26th and 39th Avenues currently exceed the first hour of the regional level of service standard E during AM peak hour. Analysis of operations of the second hour during the AM peak period is summarized in Table 10.

Table 7. Existing (2006) AM Peak Hour Traffic Operations Average Delay Volume-to- Signalized Intersections (sec/vehicle) Capacity Ratio LOS Powell Boulevard @ Milwaukie Avenue 58.0 0.79 E Powell Boulevard @ 21st Avenue 22.0 0.67 C Powell Boulevard @ 26th Avenue 83.3 0.80 F Powell Boulevard @ 33rd Avenue 22.0 0.62 C Powell Boulevard @ 39th Avenue >100 1.20 F Powell Boulevard @ 50th Avenue 73.7 0.69 E Powell Boulevard @ 52nd Avenue 24.9 0.61 C Powell Boulevard @ 65th Avenue 9.4 0.42 A Powell Boulevard @ 82nd Avenue 41.3 0.71 D Powell Boulevard @ 86th Avenue 15.1 0.40 B Powell Boulevard @ I-205 SB Ramps 17.8 0.56 B Powell Boulevard @ I-205 NB Ramps 29.4 0.78 C 52nd Avenue @ Foster Road 61.6 0.50 E

As indicated in Table 8, during the midday peak hour the intersections of Powell Boulevard with Milwaukie, 39th and 50th Avenues all exceed the regional traffic operations standard.

Table 8. Existing (2006) Midday Peak Hour Levels of Service Average Delay Volume-to- Signalized Intersections (sec/vehicle) Capacity Ratio LOS Powell Boulevard @ Milwaukie Avenue >100 0.80 F Powell Boulevard @ 21st Avenue 29.1 0.68 C Powell Boulevard @ 26th Avenue 78.1 0.66 E Powell Boulevard @ 33rd Avenue 15.4 0.45 B Powell Boulevard @ 39th Avenue 118.5 1.07 F Powell Boulevard @ 50th Avenue >100 1.09 F Powell Boulevard @ 52nd Avenue 23.9 0.62 C Powell Boulevard @ 65th Avenue 10.3 0.37 B Powell Boulevard @ 82nd Avenue 59.0 0.77 E Powell Boulevard @ 86th Avenue 21.3 0.67 C Powell Boulevard @ I-205 SB Ramps 19.7 0.63 B Powell Boulevard @ I-205 NB Ramps 31.8 0.81 C 52nd Avenue @ Foster Road 39.5 0.51 D

Inner Powell Boulevard Policy Background and Existing Conditions 49

Table 9 summarizes the traffic operations analysis results for the PM peak hour. As indicated, during this time period the intersections of Powell Boulevard with 39th and 52nd Avenues exceed the first hour of the regional standard.

Table 9. Existing (2006) PM Peak Hour Levels of Service Average Delay Volume-to- Signalized Intersections (sec/vehicle) Capacity Ratio LOS Powell Boulevard @ Milwaukie Avenue 67.0 0.81 E Powell Boulevard @ 21st Avenue 25.7 0.80 C Powell Boulevard @ 26th Avenue 48.2 0.78 D Powell Boulevard @ 33rd Avenue 19.6 0.58 B Powell Boulevard @ 39th Avenue 96.5 1.11 F Powell Boulevard @ 50th Avenue 58.1 0.84 E Powell Boulevard @ 52nd Avenue 97.1 0.90 F Powell Boulevard @ 65th Avenue 15.3 0.56 B Powell Boulevard @ 82nd Avenue 55.8 0.81 E Powell Boulevard @ 86th Avenue 26.0 0.86 C Powell Boulevard @ I-205 SB Ramps 22.6 0.77 C Powell Boulevard @ I-205 NB Ramps 48.3 0.93 D 52nd Avenue @ Foster Road 62.0 0.52 E

In summary, the I-205 interchange ramps operate acceptably within the v/c standards for the highway type as proscribed by the Oregon Highway Plan. Of the remaining analyzed intersections most have v/c ratios of less than 0.95. Powell Blvd. at 39th Avenue exceeds a v/c of 1.00 in the AM, midday and PM peak hours and Powell Blvd. at 50th Avenue only during midday.

Analysis shows that several of the signalized intersections within the study corridor operation exceed the regional level of service (LOS) deficiency thresholds for the corresponding peak hour. For intersections with LOS F in the AM and/or PM peak hour, additional analysis was conducted to determine whether the intersection would meet the second hour regional standard. The results are summarized in Table 10.

Table 10. Existing 1st and 2nd Hour Levels of Service (LOS) Signalized Intersections Analysis Period 1st Hour LOS 2nd Hour LOS Powell Blvd.@ 26th Ave AM F D Powell Blvd.@ 39th Ave AM F F Powell Blvd.@ 39th Ave PM F F Powell Blvd.@ 52nd Ave PM F F

Based on the two hour analysis the intersections of Powell Boulevard with 39th and 52nd Avenues currently exceed the regional deficiency standards. The remaining intersection meets the operating standard for the second hour.

Inner Powell Boulevard Policy Background and Existing Conditions 50 Traffic Queuing Turn lane storage and queuing was also examined for the intersections and at freeway ramps. Table 11 summarizes the 95th percentile queue lengths for turn lanes for the study area intersections focusing along Powell Boulevard itself. Estimates of available storage are based on field measurements of the actual storage portion of the turn lane (excluding the deceleration/transition area). The values were rounded to the nearest reasonable 25-feet to correlate with an average 25-foot car length. Effective storage provided may differ from the measurements quoted in this table should additional vehicles attempt to crowd into the lane in the deceleration area. Vehicle queue estimates were prepared using the formulae for turning lane queue calculations provided in the Analysis Procedures Manual published by ODOT/TPAU in April 2006.

Table 11. 2006 – Evaluation of 95th Percentile Queues Actual Turn Lane Storage AM Queue Midday Queue PM Queue Signalized Intersections Movement (feet) Length (feet) Length (feet) Length (feet) Powell Blvd.@ Milwaukie WB Left 200 50 90 100 Powell Blvd.@ 21st Ave EB Left 75 60 100 140 WB Left 125 30 20 20 Powell Blvd.@ 26th Ave EB Left 100 50 40 60 WB Left 125 140 110 70 Powell Blvd.@ 33rd Ave EB Left 100 20 20 80 WB Left 75 20 20 20 Powell Blvd.@ 39th Ave EB Left 275 150 190 320 WB Left 175 140 140 240 Powell Blvd.@ 50th Ave EB Left 100 40 110 90 Powell Blvd.@ 52nd Ave WB Left 200 130 100 270 Powell Blvd.@ 65th Ave WB Left 75 20 20 20 Powell Blvd.@ 82nd Ave EB Left 150 180 240 390 WB Left 75 160 270 350 Powell Blvd.@ 86th Ave EB Left 50 90 260 350 Powell Blvd.@ I-205 NB Ramps EB Left 425 460 680 1080 52nd Ave.@ Foster Road SB Left 100 20 50 20 NB Left 100 120 90 130 Note: Queue lengths in bold locations where existing storage capacity is exceeded. Actual Storage and estimated queues are rounded to the nearest 25 feet. Percentages in parentheses indicate percentage of time that the turn bay entry is blocked by either a through or turn lane queue.

As indicated in Table 11, traffic queuing problems are currently being experienced throughout the corridor in all three time periods studied. At many locations, existing traffic queues spillback beyond the available storage provided at an intersection affecting either through traffic movement (which could be blocked by spillback beyond turn lane capacities) and/or the progression of traffic between intersections. Of particular concern are the intersections of Powell Boulevard with 39th Avenue, 82nd Avenue, 86th Avenue, and the I-205 northbound ramp terminus.

Inner Powell Boulevard Policy Background and Existing Conditions 51 CRASH HISTORY AND SAFETY ANALYSIS Traffic safety for all modes of travel is a major concern on inner SE Powell Boulevard. Two of the twenty-nine Strategic And Focused Enforcement Traffic Safety Corridors designated in City are along SE Powell Boulevard. One is between McLoughlin Boulevard and 13th Avenue, and the other is between SE 21st and 52nd Avenues.

High crash locations along SE Powell Blvd between McLoughlin Blvd and I-205 are listed in Table 12. The list includes all locations where there were either 20 or more crashes, or one or more fatalities from 2001 and 2004. The City Ranking system is based on the rate of crashes at an intersection. It is adjusted for traffic volume. For example, SE Powell and 82nd Ave is ranked the 4th highest crash location in the City of Portland. The crash rate at SE Powell and 82nd Ave is 2.53. Therefore, there is a greater likelihood of crashes at this intersection.

Table 12: High Crash Locations along SE Powell Blvd, McLoughlin to I-205 (Locations with 20 or more crashes or 1 or more fatalities from 2001-2004) Location City Total ADT Crash Fatality Pedestrian Bike Ranking Crashes Rate 7th Avenue 96 92 62357 1.08 0 0 1 12th/13th Place 347 20 54151 0.27 0 1 0 13th Avenue 348 20 55252 0.27 0 2 0 21st Avenue 300 34 49603 0.50 0 2 1 26th Avenue 255 41 48527 0.62 0 1 5 28th Avenue 266 36 45341 0.58 0 1 3 29th Avenue 331 25 44133 0.42 0 0 0 33rd Avenue 312 28 44000 0.47 0 0 1 34th Avenue 339 22 47312 0.34 0 0 0 36th Avenue 338 22 45252 0.36 0 1 0 39th Avenue 46 140 68081 1.51 0 2 1 50th Avenue/Foster 212 61 62080 0.72 0 0 0 52nd Avenue 263 34 42111 0.59 0 0 0 71st Avenue 325 20 33910 0.43 0 0 0 72nd Avenue 310 22 34041 0.48 0 1 0 82nd Avenue 4 225 65500 2.53 1 2 2 90th Place 337 21 39600 0.39 0 0 0 92nd Avenue 16 138 50208 2.02 0 0 3 Milwaukie Avenue 244 62 69777 0.65 0 0 0 I-205 NB Exit to 115 47 33760 1.02 0 0 1 Powell I-205 SB Exit to Powell 340 23 49700 0.34 0 0 1

Inner Powell Boulevard Policy Background and Existing Conditions 52 The Safety Priority Index System (SPIS) locations along SE Powell Boulevard and the intersections that fall within the SPIS locations mile point range are listed below. SPIS is a method developed by ODOT for identifying hazardous locations on state highways. The SPIS score is based on three years of crash data and considers crash frequency, crash rate, and crash severity.

2006 Top 5% SPIS Locations: . MP 0.50-0.68, SPIS Score 71.06, Ross Island Bridge . MP 0.68-0.86, SPIS Score 73.75, Ross Island Bridge . MP 1.06-1.51, SPIS Score 81.56, SE 7th - 13th Ave . MP 1.72-1.90, SPIS Score 71.43, SE 20th - 22nd Ave . MP 1.98-2.15, SPIS Score 63.56, SE 25th - 26th Ave . MP 2.08-2.27, SPIS Score 74.75, SE 28th - 29th Ave . MP 2.49-2.67, SPIS Score 70.96, SE 33rd Pl - 35th Pl . MP 2.64-2.75, SPIS Score 58.42, SE 35th Pl - 36th Ave . MP 2.82-3.03, SPIS Score 82.04, SE 38th - 40th Ave . MP 3.01-3.19, SPIS Score 67.89, SE 42nd - 43rd Ave . MP 3.36-3.67, SPIS Score 75.14, SE 49th - 54th Ave . MP 4.41-4.63, SPIS Score 76.56, SE 70th - 74th Ave . MP 4.94-5.18, SPIS Score 86.79, SE 80th Ave . MP 5.40-5.52, SPIS Score 56.40, SE 88th Ave - 90th Pl . MP 5.50-5.68, SPIS Score 81.62, SE 92nd Ave

2006 Top 10% SPIS Locations: . MP 3.95-4.06, SPIS Score 45.72, SE 61st - 62nd Ave . MP 4.01-4.13, SPIS Score 56.15, SE 62nd - 64th Ave . MP 5.48-5.57, SPIS Score 48.00, SE 90th Pl

Inner Powell Boulevard Policy Background and Existing Conditions 53

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX A: POWELL BOULEVARD PLAN DISTRICT

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX B: ZONING MAP

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX C: CORRIDOR RIGHT-OF-WAY MAPS

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX D: SIDEWALK INTERSECTION CURB RAMP INVENTORY

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX Cross Street SW SE NW NE Description 7th Diagonal, New Diagonal, New Diagonal, Old Diagonal, Old 8th Diagonal, New Diagonal, New Diagonal, New Diagonal, New 9th Diagonal, New Diagonal, New Diagonal, Old Diagonal, New 10th Diagonal, New Diagonal, New Diagonal, Old Diagonal, New Brooklyn St None None Diagonal, New Diagonal, New T-Intersection 11th Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old Milwaukie Double, Old Diagonal, Old Double, New Diagonal, Old Milwaukie None None Diagonal, Old Diagonal, Old NE Crosswalk 12th None Diagonal, Old None None T-Intersection 13th Pl None None Diagonal, New Diagonal, New T-Intersection 13th Single across Powell, New None Single across Powell, New None Crosswalk 13th Diagonal, Old Diagonal, New None None T-Intersection 14th Diagonal, Old Diagonal, Old None None T-Intersection 15th Diagonal, Old Diagonal, Old None None T-Intersection T-Intersection w/ 16th Diagonal, Old Diagonal, Old Single across Powell, Old None Crosswalk 18th None None None None T-Intersection 19th None None Diagonal, Old None T-Intersection 20th Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, New 21st Diagonal, New Diagonal, New Diagonal, New Diagonal, New 22nd Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, New Sidestepped Intersection 23rd None None Diagonal, New Diagonal, Old T-Intersection 24th None None Diagonal, New Diagonal, New T-Intersection 24th Single across Powell, New None Single across Powell, New None Crosswalk 25th None None Diagonal, New Diagonal, New T-Intersection 26th Diagonal, New Double, New Diagonal, New Double, New 28th Diagonal, Old Diagonal, Old Diagonal, New Diagonal, Old T-Intersection w/ 28th Pl Diagonal, Old Double, New None Single across Powell, New Crosswalk 29th Diagonal, New Diagonal, Old Diagonal, Old Diagonal, Old 30th None None None None T-Intersection 31st None None Diagonal, Old Diagonal, Old T-Intersection 31st Single across Powell, New None Single across Powell, New None Crosswalk 32nd Diagonal, Old Diagonal, Old None None T-Intersection 33rd Diagonal, Old Diagonal, New Diagonal, New Diagonal, New 33rd Pl Diagonal, New Diagonal, Old None None T-Intersection 34th Single across Powell, New None Single across Powell, New None Crosswalk 34th Diagonal, Old Diagonal, New None None T-Intersection

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX 35th Pl Diagonal, Old None None None T-Intersection Cross Street SW SE NW NE Description T-Intersection w/ 36th Diagonal, Old Single across Powell, New None Double, New Crosswalk 36th Pl Diagonal, Old None None None T-Intersection 37th Diagonal, Old Diagonal, Old None None T-Intersection 38th Diagonal, Old Diagonal, Old None None T-Intersection 39th Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old 40th Diagonal, Old Diagonal, Old None None T-Intersection 42nd Diagonal, Old Diagonal, Old None None T-Intersection 43rd None None Diagonal, New Diagonal, New T-Intersection, North 43rd Pl Diagonal, Old Diagonal, Old None None T-Intersection, South T-Intersection w/ 45th None Single across Powell, Old Diagonal, New Diagonal, New Crosswalk 47th None None Diagonal, New Diagonal, New T-Intersection 48th Single across Powell, New None Single across Powell, New None Crosswalk 49th Diagonal, New Diagonal, Old Diagonal, Old Diagonal, Old Foster Diagonal, Old Diagonal, New Diagonal, New Diagonal, New Foster Diagonal, Old None None None SW Crosswalk 51st None None Diagonal, Old Diagonal, Old T-Intersection 52nd Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old 53rd None None Diagonal, Old Diagonal, Old T-Intersection w/ 54th Single across Powell, New None Diagonal, New Diagonal, Old Crosswalk 54th Diagonal, Old Diagonal, Old Diagonal, Old None In Parking Lot Pullout Single across Parking Lot, Single across Parking Lot, 55th Old Old Diagonal, Old Diagonal, Old Single across Parking Lot, 56th Diagonal, Old Old Diagonal, New Diagonal, Old Single across Parking Lot, Single across Parking Lot, 57th Old None Old None In Parking Lot Pullout Single across Parking Lot, Single across Parking Lot, 57th Old New Diagonal, Old Diagonal, Old 58th None None Diagonal, Old Diagonal, Old T-Intersection Single across Parking Lot, Single across Parking Lot, 59th Old New Diagonal, Old Diagonal, Old Single across Parking Lot, Single across Parking Lot, 60th Old None Old None In Parking Lot Pullout Single across Parking Lot, Single across Parking Lot, 61st Old Old None None 62nd Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old Sidestepped Intersection

Inner Powell Boulevard Policy Background and Existing Conditions 60 63rd Double, New None Diagonal, Old Diagonal, Old Sidestepped Intersection Cross Street SW SE NW NE Description Single across Parking Lot, Single across Parking Lot, 64th Old New Diagonal, Old Diagonal, Old Single across Parking Lot, 64th Diagonal, Old Diagonal, Old Old None In Parking Lot Pullout 65th Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old Single across Parking Lot, 65th Diagonal, Old Diagonal, Old Old None In Parking Lot Pullout 66th Single across 66th, Old Single across 66th, Old Single across 66th, Old Single across 66th, Old 67th Diagonal, Old Diagonal, New Diagonal, Old Diagonal, Old Single across Parking Lot, 67th Diagonal, Old Diagonal, Old Old None In Parking Lot Pullout 68th Single across 68th, Old Single across 68th, Old None None T-Intersection 68th Single across 68th, Old Diagonal, Old Single across 68th, Old Single across 68th, Old 69th Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old 70th Diagonal, Old Diagonal, Old None None T-Intersection 71st None None Diagonal, Old Diagonal, Old T-Intersection 72nd Diagonal, Old Diagonal, Old Single across Powell, Old Single across Powell, Old Crosswalk 73rd Diagonal, Old Diagonal, Old None None T-Intersection 74th Diagonal, New Diagonal, New Diagonal, New Diagonal, Old Sidestepped Intersection Single across Parking Lot, Single across Parking Lot, 74th None New New Double, New In Parking Lot Pullout Single across Parking Lot, Single across Parking Lot, 75th Old Old Single across 75th, Old Single across 75th, Old 76th Single across 76th, Old Single across 76th, Old Double, New Single across 76th, Old Single across Parking Lot, Single across Parking Lot, 76th None Old None Old In Parking Lot Pullout 77th None None Diagonal, Old Diagonal, Old T-Intersection 77th Single across Powell, New None Single across Powell, New None Crosswalk Single across Parking Lot, Single across Parking Lot, 77th Old Old None In Parking Lot Pullout Single across Parking Lot, Single across Parking Lot, 77th Old Diagonal, Old Old None In Parking Lot Pullout 78th None Single across Powell, Old Single across 78th, Old Single across 78th, Old Single across Parking Lot, 79th Diagonal, Old Diagonal, Old Old None In Parking Lot Pullout 79th Single across 79th, Old Single across 79th, Old Single across 79th, Old Single across 79th, Old 80th Diagonal, Old Diagonal, Old None None T-Intersection 82nd Double, New Double, New Double, New Double, Old 84th Diagonal, Old Diagonal, New Diagonal, Old Diagonal, Old

Inner Powell Boulevard Policy Background and Existing Conditions 61 85th None None Diagonal, Old Diagonal, Old T-Intersection Cross Street SW SE NW NE Description 86th Diagonal, Old Diagonal, Old None None T-Intersection 87th None None Diagonal, Old Diagonal, Old T-Intersection 88th Diagonal, Old Diagonal, Old None None T-Intersection 89th None None Diagonal, New Diagonal, New T-Intersection 90th Pl Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old I-5 Ramp, W Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old I-5 Ramp, E Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old 98th Diagonal, Old Diagonal, Old Diagonal, Old Diagonal, Old Crossing Median 98th Single across Powell, New None Single across Powell, Old None Crosswalk

Inner Powell Boulevard Policy Background and Existing Conditions 62

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX E: MAP OF EXISTING AND PROPOSED BIKEWAYS

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX F: MAPS OF TRIMET TRANSIT SERVICE

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX G: MAPS OF EXISTING SEWER AND STORMWATER

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX H: TRAFFIC SIGNAL COUNT DATA

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX I: TRAFFIC OPERATIONS FIELD NOTES

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX APPENDIX J: INTERSECTION ANALYSIS WORKSHEETS

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX

Inner Powell Boulevard Policy Background and Existing Conditions APPENDIX