TO: Councilor Duson, Chair Members of the Housing Committee

FROM Victoria Volent, Housing Program Manager

DATED: June 19, 2018

SUBJECT: Review of city-owned parcels for potential housing development ______

Introduction The Portland City Council’s on-going goals and objectives included a recommendation by the Housing Committee for the development of adequate and affordable housing. To attain this goal, the Housing Committee proposed investigating the use of City owned land for housing development. In accordance with Section 2-313 of the City Code, the city may provide city-owned land for housing development and offer the land below market price to encourage housing development or support greater affordability. Selling city owned land provides the city with unique control over the timing, location, and affordability of housing development in Portland. It also has the added benefit of turning land with no tax liability into an income generating property for the city’s tax rolls.

Evaluation of City Owned Property In November 2017, Portland’s Assessing Department identified more than 550 city-owned parcels. During 2018, staff reviewed each parcel with assistance from staff in Economic Development, Assessor, Parks, Recreation & Facilities, and Public Works with the goal of identifying and removing parcels that are clearly not developable for residential housing. Removed from the list include parcels that house schools, fire and police stations, libraries, parking garages, cemeteries, the Portland Fish Pier, the International Marine Terminal, City Hall, the Observatory, the Expo, the Fire Museum, and the Riverside Recycling Center. Also withdrawn are parcels placed in the city’s Land Bank, as well as parks, playgrounds, playing fields, trails, and headwaters. Parcels zoned as Resource Protection, Shoreland overlay, Stream overlay, Contract Zone, Recreation Open Space, Office Park, Business Zone, Industrial Zone, and EWPZ Waterfront were also taken off the list. And any parcel located on Peaks Island Long Island, and Great Diamond Island were removed. From the original 550 city-owned parcels, 113 parcels remain.

Though the City owns hundreds of parcels, the majority (as noted above) are not developable for affordable housing. The attached spreadsheet identifies the remaining 113 lots by street location, assessed land and building value, and a descriptive note as to the current use and/or potential for housing development. The attached map depicts the location of these 113 parcels. Each parcel is defined as either “Municipal Parcel” or “Parking Lot”. Topography (extensive amount of ledge or significant wetland), infrastructure costs (a number of paper streets would require construction of connected roadways, and sewer and storm water expansion), zoning (required minimum lot size), and the shape of the parcel (some lots lack depth or they are long and thin (similar to a strip of spaghetti)), hinder the development of many of the lots. The remaining handful of parcels include parking lots for municipal employees, land abutting the Jetport and intended for future growth, the parcel known as the Franklin Reserve, and a lot at 21 Randall Street.

Further Analysis The seven identified parking lots are in active use by the city for either city employee parking or, in the case of Angelo’s Acre at 431 Commercial Street, it is the location of four “silver bullet” recycling bins as well as public parking for 65 vehicles. The three parcels abutting the Airport are intended for future growth of Airport facilities. 21 Randall Street is a .32 acre or 13,956 square foot parcel of city-owned land in the R-5 zone that abuts the Front Street development project. The R-5 zone allows medium density residential development characterized by single-family, two-family, and low-intensity multi- family dwelling units. The minimum lot size for a single-family home is 6,000 square feet while a multiplex requires 9,000 square feet for development. Every 9,000 square feet allows for 6 units per building. At 13,956 square feet, 21 Randall would allow for one multiplex building of 6 units of housing.

Prior Parcel Review

0 Westbrook Street: During the March 28 meeting of the Housing Committee, staff presented its review and recommendation of the 0 Westbrook Street parcel. This parcel is situated across from the future Stroudwater Preserve site, it borders a Resource Protection Zone to the north, land held by the Portland Water District to the west, a single-family lot to the east, and two single-family lots located on Westbrook Street to the south. The parcel is the location of the Westbrook Street entrance to the Fore River Sanctuary and has been of interest to Portland Trails and the Land Bank Commission for many years. Portland Trails has established a trailhead connecting Westbrook Street to the Fore River Sanctuary at this location. The site features several streams/drainage channels, wet areas that drain to the Fore River and the remnants of a portion of the historic Cumberland Oxford Canal. A natural gas pipeline was also installed through a portion of the site, along the east boundary to serve the Portland Tech Park. There are also numerous Portland Water District, drainage, and other easements on the site.

An initial review of the parcel suggests the possibility of developing six single family lots. However, given the many challenges associated with this site, the development would be very expensive. Staff did not recommend pursuing this parcel as an option for housing development.

Franklin Reserve: The parcel between Franklin Street and Boyd Street, known as the Franklin Reserve, consists of two contiguous parcels that total 1.88 acres. One parcel, at 2 Boyd Street, is 1.4 acres and owned by the City of Portland. The other parcel at 43 Boyd Street is .48 acres and owned by the Portland Housing Authority. The Franklin Reserve is contained within the 130-acre land area of East Bayside. During the March 28, 2018 meeting of the Housing Committee, Christina Egan, the Executive Director of GPGOG, presented an overview of GPCOG’s East Bayside Brownfield Area-Wide Plan report. The report is a guide to facilitate future development and redevelopment of East Bayside with the goal to spur “sustainable and equitable development outcomes, such as the creation of safe and affordable housing on brownfield sites and; assess optimization of green space by studying existing open space and the community based urban farm located along Franklin Arterial.” Possible reuse options for the Franklin Reserve include a variety of community-based housing and/or commercial opportunities. The final report recommendation is for “the City (to) consider whether or not an exploration of possible reuse options for this site is desired”.

The Franklin Reserve is assessed at $119,880 and is located in the R – 6 zone. The purpose of the R – 6 zone is for housing characterized primarily by multi-family dwellings at high-density providing a range of housing for different types of households. A community-held priority for this site identified “affordable housing as well as preserving some open space, adding community space, and helping to ensure that Cultivating Community remains in East Bayside.” During the March 28 meeting, staff recommended identifying a preferred use or reuse option that aligns with the needs of the community. There does appear to be potential for infill housing development on this site that would address Comprehensive Plan goals related to both housing development and density along key corridors in the City. However, staff would want to conduct additional detailed analysis to ensure that this infill development would not have significant negative impacts on other uses of the Reserve.

Maps Portland’s Parks, Recreation & Facilities Department mapped the parks, playgrounds, trails, open spaces and woods, and other municipal facilities found within the city. This map may be found at the Portland Parks, Recreation & Facilities website by clicking on the tab “Places” and then further clicking on “Park Finder Map”. This interactive map provides a detailed descriptions of Portland’s many recreational amenities. In February of 2018, the Department of Public Works created a map containing; Land Bank holdings; City parks and open spaces; and Resource Protection zones. This map may be found by clicking on the tab “Community” from the city’s home page, then under the heading “GIS Maps” clicking on “Custom PDF Maps”. This brings you to the page that contains the “Land Bank Holdings February 2018” map as well as a map of “City Facilities”. These maps provide information on the many large city-owned parcels that were earlier identified as unbuildable for affordable housing. The attached map, “City-Owned property: Affordable Housing Review” is a companion map meant to depict parcels not included in other available maps.

Summary Two main themes from Portland’s new comprehensive plan were housing insecurity and lack of sufficient and suitable housing. The City recognizes that its vitality rests on the availability of diverse, secure housing options for existing residents, new arrivals, and all stages of life. A review of city-owned parcels for potential housing development reveals the majority of land is not suitable for affordable housing development. Of the over 550 parcels of city-owned property, only a handful of parcels including parking lots for municipal employees, the parcel known as the Franklin Reserve, and a lot at 21 Randall Street are buildable for affordable housing.

Attachments Map of city-owned property- affordable housing review Spreadsheet of city-owned property- affordable housing review GIS map of 21 Randall Street GIS map of Franklin Reserve GIS map of 0 Westbrook Street

City-owned property Affordable Housing Review

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Legend City Own Lots LOT STREET ASSESSED ASSESSED ASSESS. PARCEL ID ACRES No. LOCATION LAND BUILDING TOTAL NOTE 008 A006001 0.3864 9 PLOWMAN 117,800 - 117,800 B - 6 "spaghetti strip" (unbuildable) 009 A005001 0.5333 12 PLOWMAN 162,600 - 162,600 B - 6 "spaghetti strip" btw Plowman & Cove (unbuildable) 010 H003001 0.5921 45 DIAMOND ST 180,500 180,500 B - 2c "spaghetti strip" (unbuildable) 012 D015001 0.0455 0 WHITMAN ST 4,000 - 4,000 R - 6 (under-sized lot on paper street) 012 M011001 0.1837 18 EVERETT ST 16,000 - 16,000 50' ROW (unbuildable) 013 B015001 0.0904 0 OXFORD ST EXT 24,000 - 24,000 bisected by East Oxford Street (unbuildable) 013 K005001 0.1232 0 SUMNER CT 16,400 - 16,400 at the end of unacceptable city street 016 G015001 0.031 53 MONUMENT ST R 4,100 - 4,100 land locked (parking for Fire Dept.) 022 F023001 1.3996 2 BOYD ST 115,500 4,380 119,880 R - 6 Franklin Reserve 023 B034001 0.0731 0 ANDERSON ST 12,700 - 12,700 bisected by Anderson St (unbuildable) 024 A005001 0.086 0 FRANKLIN ST 65,100 - 65,100 B - 2c (unbuildable triangle strip of land) 024 A037001 0.033 243 MARGINAL WAY 500 - 500 B - 6 (unbuildable triangle strip of land) 024 B008001 0.0299 65 LANCASTER ST 500 - 500 R - 6 (undersized lot for housing) 027 B003001 0.0103 9 ELM ST 123,800 - 123,800 Courtyard from Elm Street to Portland HS (unbuildable) 028 I013001 0.0274 104 FEDERAL ST 2,400 - 2,400 "spaghetti strip" next to 169 Newbury St & 100 Federal (unbuildable) 028 O017001 0.2183 83 MIDDLE ST 277,800 - 277,800 Police Dept. parking lot 029 E019001 0.0708 0 FRANKLIN ST 6,200 - 6,200 "spaghetti strip" in front of 100 Middle St. (unbuildable) 029 S002001 0.0215 145 COMMERCIAL ST 9,400 - 9,400 "spaghetti strip" btw Boothby Squ. & 145 Commercial (unbuildable) 032 L001001 0.0155 234 FEDERAL ST W 3,400 - 3,400 triangle shaped parcel abutting 1 City Center (unbuildable) 032 P005001 0.0036 0 SPRING ST ARTERIAL 600 - 600 triangle shaped parcel abutting 2 City Ctr & 4 City Ctr (unbuildable) 033 C012001 0.3204 33 PORTLAND ST 190,600 37,380 227,980 Parking lot (for School Department) 034 A010001 0.2254 181 FOREST AVE 71,300 - 71,300 B - 2c "spaghetti strip" over former railroad tracks (unbuildable) 034 G005001 0.3465 158 KENNEBEC ST 205,900 - 205,900 B - 7 storage lot for city-owned vehicles 039 D005001 0.3522 98 HIGH ST 302,300 13,130 315,430 parking lot (deed restricted) 039 E001001 0.0228 94 SPRING ST ARTERIAL 7,000 - 7,000 buffer between sidewalk and street (unbuildable) 043 C006001 1.2912 431 COMMERCIAL ST 562,500 - 562,500 B -5 b Angelo's Acre Lot (snow parking & recycling) 045 E031001 0.1942 157 BRACKETT ST 126,300 - 126,300 B - 1 parking lot across from Reiche School 056 B012001 0.1679 176 CLARK ST 79,500 - 79,500 R - 6 parking lot across from Reiche School 060 A003001 0.0386 183 WEST COMMERICAL ST 4,200 - 4,200 R - 4 (under sized lot for housing) 065 A009001 0.0735 0 HEMLOCK ST 31,700 - 31,700 R - 6 ROW and parking lot (unbuildable) 078 C002001 0.3981 43 DOUGLASS ST 49,000 - 49,000 R - 5 parking lot for Dougherty Playground 082 D007001 0.0161 31 ST GEORGE ST 500 - 500 R - 5 (undersized lot for housing) 112 B010001 0.0746 7 FENWICK RD 13,000 - 13,000 R - 5 (undersized lot for housing) 123 D028001 0.0093 2 SEELEY AVE 300 - 300 R - 3 (undersized lot for housing) 123 E033001 0.0112 1 SEELEY AVE 400 - 400 R - 3 (undersized lot for housing) 126 G003001 0.2434 56 CLIFTON ST 64,400 - 64,400 R - 3 triangle lot 134 I001001 0.0952 11 HYDE ST 3,100 - 3,100 R - 5 (undersized lot for housing) 135 E018001 0.299 75 LELAND ST 47,400 - 47,400 land locked next to Lincoln MS playground 136 A004001 0.0588 112 HARTLEY ST 1,900 - 1,900 R - 5 (undersized lot for housing) 148 C001001 0.3506 143 READ ST 39,700 - 39,700 lacks minimum width for housing development 149 G039001 0.0769 0 TORREY ST 1,300 - 1,300 R - 3 (undersized lot for housing) 156 E008001 0.1148 338 OCEAN AVE 4,300 - 4,300 R - 3 (undersized lot for housing) 160 D020001 0.1377 60 ROSEDALE ST 5,100 - 5,100 R - 3 (undersized lot for housing) 160 G001001 0.0313 0 DUDLEY ST 1,200 - 1,200 R - 3 (undersized lot for housing) 164 A011001 0.0781 172 FRONT ST 2,900 - 2,900 R - 3 (undersized lot for housing) 166 B014001 0.3204 21 RANDALL ST 11,900 - 11,900 R - 5 (meets square footage for multiplex (9,000 SF) at 13,956 SF) 168 H002001 0.0151 5 ST JUDE ST 600 - 600 R - 5 (undersized lot for housing 186 C048001 0.3005 0 BOLTON ST 9,800 - 9,800 R - 5 (undersized lot for housing) 188 B015001 0.2049 0 ANSON RD 6,700 - 6,700 R - 3 land locked 192 K032001 0.1459 192 WOLCOTT ST 2,400 - 2,400 R - 3 (undersized lot for housing) 195 B021001 0.0531 174 CAPISIC ST 1,700 - 1,700 R - 3 (undersized lot for housing) 209A A014001 18.6147 1956 CONGRESS ST 1,013,600 - 1,013,600 R - 2 (next to Airport ) 209A B001001 10.1899 0 JETPORT BLVD 554,800 - 554,800 R - 2 (next to Airport ) 211 B003001 8.5934 1928 CONGRESS ST 590,600 - 590,600 R - 2 (next to Airport) 224A F012001 0.1148 0 RIDLEY ST 3,700 - 3,700 on paper street with recommendation to vacate 232 A002001 3.8997 131 JOHNSON RD 72,200 - 72,200 includes and abuts exit 46 260 C031001 0.1928 0 PHILBRICK AVE 3,100 - 3,100 R - 3 on paper street abutting RP Zone 261 B017001 0.0964 0 TERRACE AVE 1,600 - 1,600 R - 3 (undersized lot for housing) 261 B054001 0.0482 109 ROWE AVE 1,600 - 1,600 R - 3 (undersized lot for housing) 261 B055001 0.0964 111 ROWE AVE 3,100 - 3,100 R - 3 (undersized lot for housing) 261 G053001 0.2479 0 MILO ST 4,000 - 4,000 R - 3 on paper street abutting RP Zone 262 C025001 0.0535 0 TERRACE AVE 1,700 - 1,700 R - 3 (undersized lot for housing) 262 C026001 0.107 0 TERRACE AVE 3,500 - 3,500 R - 3 (undersized lot for housing) 269 B004001 0.1798 56 HOLM AVE 5,800 - 5,800 ledge buffer to Office of Elder Care 273 J029001 0.186 0 RAVINA ST 3,000 - 3,000 R - 3 on paper street 273 K020001 0.5146 0 RAVINA ST 8,300 - 8,300 R - 3 on paper street 275 C029001 0.1914 0 LOMOND ST 29,600 - 29,600 R - 3 on paper street 275 C049001 0.1653 91 RIGGS ST 2,700 - 2,700 R - 3 on paper street 275 C051001 0.0918 87 RIGGS ST 1,500 - 1,500 R - 3 (undersized lot for housing) 275 C056001 0.0918 0 LOMOND ST 1,500 - 1,500 future turnaround for Lomond Street 275 C079001 0.1017 106 WARWICK ST 3,300 - 3,300 R - 3 (undersized lot for housing) 284 G027001 0.1002 57 ESSEX ST 3,200 - 3,200 R - 3 (undersized lot for housing) 295 G005001 0.9766 102 WARREN AVE 148,900 - 148,900 ROW to Bishop St (unbuildable) 297 C027001 0.2048 122 DOROTHY ST 3,600 - 3,600 R - 3 "spaghetti strip" (unbuildable) 309 A021001 0.1575 1769 RIVERSIDE IND PKWY 2,700 - 2,700 R - 3 "spaghetti strip" (unbuildable) 330 E001001 0.2479 330 NEWELL AVE 4,300 - 4,300 R - 2 on paper street (lot size allows for 1 single family residence) 332 A001001 0.2995 0 RIVERSIDE IND PKWY 5,200 - 5,200 R - 3 "spaghetti strip" (unbuildable) 332 A009001 0.0764 42 TUCKER AVE R 1,300 - 1,300 R - 3 land locked "spaghetti strip" (unbuildable) 332 F012001 0.241 85 BEAL ST 33,000 - 33,000 R - 2 on paper street 332 I009001 0.1148 22 TUCKER AVE 4,000 - 4,000 R - 3 "spaghetti strip" (unbuildable) 334 A015001 1.6336 0 PALMER AVE 28,500 - 28,500 R - 2 and R -3 "spaghetti lot" parallel to railroad tracks (unbuildable) 339 B003001 0.1377 129 NEWTON ST 45,100 - 45,100 R - 3 (undersized lot for housing) 339 N021001 0.1148 62 EIGHTH ST 2,000 - 2,000 R - 3 (undersized lot for housing) 340 L017001 2.2058 1315 FOREST AVE 69,200 - 69,200 R - 3 strip runs parallel to railroad tracks (wet) 342 A033001 0.1377 0 CARRIAGE LN 45,100 - 45,100 R - 5 (may be enough square feet for single family residence) 346 D003001 0.0396 182 PLYMOUTH ST 1,500 - 1,500 R - 3 (undersized lot for housing) 346 D004001 0.0826 186 PLYMOUTH ST 3,100 - 3,100 R - 3 (undersized lot for housing) 348 B003001 0.0976 0 COOLIDGE AVE 1,800 - 1,800 R - 3 (undersized lot for housing) 352 B027001 0.0519 1 DOLE DR 1,900 - 1,900 R - 2 and R - 3 (undersized lot for housing) 352 D018001 3.1697 284 PALMER AVE 58,700 - 58,700 R - 2 on paper street recommended to vacate 371 A021001 0.7048 1819 WASHINGTON AVE 13,100 - 13,100 R - 3 "spaghetti strip" (unbuildable) 378 A070001 0.0729 0 BARTLEY AVE 2,700 - 2,700 R - 2 (undersized lot for housing) 385 B027001 0.6721 200 LAMBERT ST 43,900 - 43,900 R - 2 (triangle-shaped lot with poor sight lines) 385 E001001 0.094 216 LAMBERT ST 1,700 - 1,700 R - 2 (undersized lot) 385 E002001 0.1921 2092 WASHINGTON AVE 3,600 - 3,600 R - 2 (undersized lot) 387 A014001 0.0266 110 CARON ST 1,000 - 1,000 R - 2 (undersized lot) 387 C004001 0.0012 79 CARON ST 100 - 100 R - 2 (undersized lot) 387 C007001 0.0222 109 CARON ST 800 - 800 R - 2 (undersized lot) 393 A001001 0.0344 0 TALBOT ST 1,300 - 1,300 R - 2 (undersized lot) 393 A002001 0.0344 0 TALBOT ST 1,300 - 1,300 R - 2 (undersized lot) 393 A003001 0.1377 0 TALBOT ST 5,100 - 5,100 R - 2 (undersized lot) 393 A013001 0.0344 0 TALBOT ST 1,300 - 1,300 R - 2 (undersized lot) 394 A021001 0.0459 0 TALBOT ST 1,700 - 1,700 R - 2 (undersized lot) 394 A023001 0.0918 0 TALBOT ST 3,400 - 3,400 R - 2 (undersized lot) 394 C029001 0.0459 0 TALBOT ST 1,700 - 1,700 R - 2 (undersized lot) 394 E017001 0.0918 0 JUNIPER ST 3,400 - 3,400 R - 2 (undersized lot) 394 E062001 0.0459 0 BINGHAM ST 1,700 - 1,700 R - 2 (undersized lot) 395 B001001 0.3444 0 TALBOT ST 12,800 - 12,800 abuts Oatnuts Park (land locked) 407 E001001 0.1031 0 IDAHO ST 3,800 - 3,800 R - 3 (undersized lot for housing) 410 B030001 0.0919 90 NOTTINGHAM AVE 3,400 - 3,400 R - 3 (undersized lot for housing) 410 F022001 0.0374 68 DEMEREST ST 1,400 1,400 R - 3 (undersized lot for housing) 428 C007001 0.1333 563 WASHINGTON AVE 4,900 - 4,900 R - 5 (undersized lot for housing) 433 A015001 0.0103 10 WHITTIER ST 100 - 100 R - 5 (undersized lot for housing)

Key Parking Lot Municipal Parcel