Portland State University PDXScholar

Urban Studies and Planning Faculty Nohad A. Toulan School of Urban Studies and Publications and Presentations Planning

Winter 2012 Making Way for the Orange Line: A Car-Free Bridge Provides a Transit Link Between Milwaukie and Portland

Merry MacKinnon Portland State University

Follow this and additional works at: https://pdxscholar.library.pdx.edu/usp_fac

Part of the Urban Studies and Planning Commons Let us know how access to this document benefits ou.y

Citation Details MacKinnon, Merry. (2012) Making Way for the Orange Line: A Car-Free Bridge Provides a Transit Link Between Milwaukie and Portland. Metroscape Winter 2012, p. 25-30.

This Article is brought to you for free and open access. It has been accepted for inclusion in Urban Studies and Planning Faculty Publications and Presentations by an authorized administrator of PDXScholar. Please contact us if we can make this document more accessible: [email protected]. Making way for the Orange Line

A car-free bridge provides a transit link between Milwaukie and Portland Rendering courtesy of TriMet by Merry MacKinnon

fter the Portland-Milwaukie tion areas — as well as South Water- Project had identi- front on the westside — have signifi- Afied its alignment and station cant development potential along the locations, a glitch over a grant stalled Light Rail to Milwaukie corridor. early planning for development at two With that in mind, the City of Port- of the 10 stations sited in Portland. land’s Bureau of Planning and Sus- When it opens in September, 2015, tainability applied to Metro for a grant, the 7.3-mile-long Orange Line to Mil- funded by construction excise tax re- waukie will start at Portland State Uni- ceipts, to plan for development at Clin- versity at Southwest 5th Avenue and ton Street and Rhine Street Stations. Jackson Street, cross the Willamette “We were trying to get a head start,” River on the new transit bridge (cur- said Southeast District Liaison Matt rently under construction), pass by Wickstrom of Portland Bureau of OMSI and part of Central Eastside Planning and Sustainability. “Those Industrial District, trace the already two stations have the most develop- existing railroad tracks through estab- ment potential on the east side of the lished inner southeast neighborhoods line.” and continue on through Milwaukie But then planning for those stations and into Oak Grove. was halted after Home Builders As- Two of Portland’s eastside Port- sociation of Metropolitan Portland land-Milwaukie Light Rail stations — filed a lawsuit in 2010. The association Clinton at Southeast 12th Avenue and claimed that Metro had exceeded its Rhine at Southeast 17th Avenue — are authority when Metro’s construction located in areas zoned for employment excise tax sunsetted and Metro Coun- and industrial. In Portland, those sta- cil voted to extend the tax on new con-

Metroscape Page 25 A view looking north from the Ross Island Bridge of TriMet's new transit bridge construction. Photograph courtesy of TriMet

struction for another five years and to use general to the construction excise tax,” receipts to fund grants to support plan- explained Wood. “But it was originally ning in Portland and other cities, includ- supposed to go for planning for new ex- ing Milwaukie, within the existing urban pansion (of the urban growth boundary), growth boundary. “We believe we have and when Metro brought it back they the authority to do that,” said Metro’s changed that for planning inside the city.“ Chief Financial Officer Margo Norton. Multnomah County Circuit Court de- When Metro officials and Home Build- cided in favor of Metro. Then, last June, ers Association of Metropolitan Portland Home Builders Association of Metro- describe what type of Metro planning politan Portland appealed and, as of early grants should be funded by receipts from November, a final decision has not been a construction excise tax that started in rendered by Court of Appeals. 2006, they agree on one thing. Norton Other issues surround construction ex- said that originally Metro’s tax was to cise taxes in general, but as the tax issue raise $6.3 million for concept planning pertains to the light rail, it’s not one that grants in outlying areas that were being will have a significant impact, said Nor- brought into the urban growth bound- ton. “This is a teensy, tiny piece of the ary. And Home Builders Association of Milwaukie Light Rail Line,” she said. Metropolitan Portland’s Government Af- But the dispute highlights how agency fairs Manager Justin Wood agreed that partners and supporters view not only the the grants were to go for planning in new urban growth boundary, but also light-rail urban growth expansion areas. expansion. In the words of a Portland- But they don’t agree on what came later. Milwaukie Light Rail Project fact sheet: “We’re not necessarily opposed in “Expanding transit options is essential to

Page 26 Metroscape both livability and economic vitality of that kind of transit, said Jonathan Ostar, our growing region, which is expected to co-director of OPAL Environmental Jus- add one million new residents and nearly tice Oregon. (Currently, TriMet Bus Line But in cities 100,000 new jobs within the project cor- 33-McLoughlin Boulevard provides high where light ridor by 2030.” -frequency service between Portland and rail has a Expanding light rail transit within the Milwaukie.) “We’re a little light rail crazy foothold, urban growth boundary represents an here in this region,” Ostar said. “That “evolution of thought” that started in the they’re continuing to use local general it's viewed ’70s, said TriMet’s Alan Lehto, director of revenue dollars for a multi-billion dollar not only as planning and policy. “In order to not have ($1.49 billion) rail extension service at the a way to sprawl from here to Salem something same time as they’re cutting bus service is move people needed to be done.” frankly a political choice that doesn’t best The first thing was to draw a line around meet the needs of those who need transit around, the region, Lehto said: “Second was to the most.” but as a make the region more livable and encour- But in cities where light rail has a foot- development age different types of transit and housing hold, it’s viewed not only as a way to move tool. (within the boundary).” people around, but as a development tool. With four MAX lines currently in place, According to a Center for Transit-Orient- the evolution has already transformed the region. Nevertheless, some are not pleased that Metro, Portland, and TriMet Conservative forged ahead with light rail. “I’ve never groups ... been a big fan of light rail. It costs too consider much — I’d go more with buses,” said Jon light rail an Chandler, chief executive officer of the Home Builders Association of Oregon. expensive (Chandler said his Salem-based group boondoggle ... stayed out of the Metro tax issue.) Em- phasizing that he was only giving his per- sonal opinion, Chandler laughed heartily and added: “But I lost that light-rail argu- ment 20 years ago.” Conservative groups such as the Cato Institute consider light rail an expensive boondoggle that forces fare increases, reduces bus service, and benefits down- town property owners at the expense of other property owners. A spokesperson for Bus Riders Unite!, a Portland-based grassroots group orga- nizing around transit justice, maintained that TriMet should have done a better job of analyzing the much less costly option of having rapid bus transit along the cor- ridor to Milwaukie, which seems ideal for

Metroscape Page 27 Photograph courtesy of TriMet ed Development report called Rails to ment in the Holgate Plaza, a mini-mall Real Estate–which looked at development now owned by TriMet on Southeast 17th patterns along new light rail lines in Min- and Holgate, TriMet will lease a space neapolis-St. Paul, Denver, and Charlotte, in downtown Portland and turn over its North Carolina — after light rail went in, current administrative offices next to the “all three transit lines experienced a tre- bus barn on 17th for use as TriMet’s op- mendous amount of new development.” erations center. Not far away, a pedestri- The report found that factors influenc- an overpass will give employees at Fred ing development along a light rail line in- Meyer’s headquarters access to light rail at clude vacant land, underutilized property, Rhine Street Station. employment, block patterns and walk- Farther south, Tacoma Street station ability, transit connectivity, and household will construct a park-and-ride with spac- incomes. es for 320 cars. The other park-and-ride, In Portland, the neighborhoods ad- with 355 spaces, will be at Southeast Park ... when the jacent to the Portland-Milwaukie Light Avenue station at the end of the line in new light Rail Project have most of those features, northern Oak Grove. Placing a park-and- rail line to along with a healthy real estate market. ride there was a strategic decision, Un- It may not foster swaths of new subdi- sworth said: “We’re trying to get people Milwaukie visions, but when the new light rail line out of their cars before they go through is completed, to Milwaukie is completed, market-driven downtown Milwaukie.” With Tacoma market-driven growth with more mixed-use and multi- Street designated for a potential street car growth with housing development is expected to take in Portland’s Streetcar Master Plan, the place all along the corridors and around more mixed- most of the stations, including downtown use and Milwaukie, which “has the right bones,” multi-family said TriMet’s Dave Unsworth, deputy di- housing rector of the Portland-Milwaukie Light Rail Project. development “The alignment goes through the heart is expected ... of things — through the neighborhoods,” Unsworth said. That doesn’t mean radical changes will transform the character of the inner southeast Portland neighborhoods — Hosford-Abernethy, Brooklyn, Sellwood- Moreland and Eastmoreland — through which the light rail travels. “Old estab- lished single-family neighborhoods will look the same — with more duplexes and accessory units,” Lehto said. The light rail line creates a seam with industrial on one side and residential on the other, said Wickstrom, referring to Brooklyn neighborhood’s Southeast 17th An artist's rendering of the pedestrian and bicycle amenities that are integral to Avenue. Besides expecting new develop- TriMet's new transit bridge project.

Page 28 Metroscape only station mentioned by officials with- site near PSU would attract consumers, out much development potential is the not only from Portland State and the one in Sellwood-Moreland neighborhood West Hills but from South Waterfront, at Southeast Bybee, which is bordered by who would likely get to the store on the a golf course and a park. The station, lo- streetcar and MAX Orange Line. cated beneath the , will be Ultimately, MAX Orange Line to Mil- accessed via staircases and an elevator. waukie is not expected to have the most On the westside, the South Waterfront ridership; the 33-mile long MAX Blue station area has the most potential for de- Line from Gresham to Hillsboro cur- velopment, with 30 acres, owned by Zidell rently does and it’s much longer, Lehto Companies, zoned for high density com- said. “The westside has grown up around mercial mixed use, and another 20 acres the Blue Line,” he added. However, many slated for an Oregon Health and Science of Blue Line’s outer neighborhoods are University satellite campus and the Col- served by car-dependent malls and don’t laborative Life Sciences Building, a joint have sidewalks. In contrast, along Port- effort between OHSU and the Oregon land-Milwaulkie MAX Line, the lack of University System, including Portland a grocery store is the only thing keeping State University and Oregon State Univer- some communities from qualifying as sity. “That will be a game changer,” Un- 20-minute neighborhoods — meaning sworth said. Light rail planning in South that food stores, restaurants, and retail Waterfront is just a piece of an overall services are all conveniently located with- Urban Renewal District planning process in a short walking or bicycling distance. in place there, with Based on a 2005 survey of Interstate forecasts of 10,000 MAX Yellow Line riders, many Portland- new jobs and 5,000 Milwaukie MAX Orange Line riders will additional hous- likely walk to the stations. In that sur- ing units, said Troy vey, 70 percent of respondents said they Doss, senior plan- walked to the Interstate light rail station ner with Portland platform. “With other light-rail develop- 20 minutes Bureau of Planning ments we’ve seen increases in walking and could include and Sustainability. biking,” said Rob Sadowsky, executive di- The MAX Or- rector of Portland’s Bicycle Transporta- a quick ange Line may also tion Alliance, a bicycling advocacy group. combination tip the scales in fa- “And we think that will also happen with of transit, vor of a New Sea- the Orange Line, particularly because it’s walking, or sons, Whole Foods, going through established neighborhoods or other grocery with streets and sidewalks.” biking across stores opening up With the Orange Line and Willamette the river on a at Southwest Fourth River transit bridge projected to improve transit bridge. and Harrison. A travel time between Milwaukie and Port- Portland Develop- land State by 29 percent, 20 minutes ment Commission could include a quick combination of market analysis, con- transit, walking, or biking across the river

Rendering courtesy of TriMet. ducted by Marketek, on the transit bridge. With new bike lanes Inc., found that the and bike parking by the stations, there

Metroscape Page 29 will be fewer gaps in the network, so af- ied and planned on paper by transporta- ter MAX to Milwaukie opens, Sadowsky tion engineers. “Time will tell how well figures more riders will trip chain, using those plans worked when we get on the multiple modes of travel — for instance, street,” Sadowsky said. bicycling to stations, then hopping on According to TriMet, the new light rail MAX and transferring to buses to get to to Milwaukie will increase work trips to their destinations. Sadowsky also predicts downtown Portland by 20 percent — an increase in commuting by bike, even reducing vehicle trips each weekday by for just part of the trip. “It will be more 9,100. Along with the new transit bridge, convenient and speedier,” he said. the Portland-Milwaukie light rail will As for the new tran- change people’s behavior, Lehto said. sit bridge, while bridge traffic will include “There will be more walking, bicycling, TriMet buses, Sadowsky is delighted that it and transit use and less driving.” won’t include cars: “It’s fantastic,” he said, But critics are right about bus service adding that bicyclists don’t get as nervous cutbacks: When the Orange Line open- sharing a bridge with light-rail trains as ing approaches, TriMet will look at elimi- they do with cars, because trains stay on nating bus routes that duplicate service, tracks. (Bicyclists and pedestrians will also which means that the high-frequency Tri- have their own lanes.) “So it’s comfortable Met Bus Line 33-McLoughlin will likely for us bicyclists.” end. “When we get a little closer to open- And because there will be good connec- ing and we understand more about de- tions to bike paths, bicyclists can avoid mands, then we’ll be going to the public traffic altogether and take the Springwater about options,” Lehto said. Corridor and the Eastside Esplanade and As for what will happen if the court cross the transit bridge at OMSI to South rules in favor of Homebuilders Associa- Waterfront station and onto westside bike tion of Metropolitan Portland, current paths. planning grants awarded by Metro will Sadowsky praised TriMet and the the have to be paid back, at half the awarded Portland Bureau of Transportation for amount, with Metro covering the other inviting the bicycling community to weigh half, Norton said. But early on, the city in on station designs, bike parking, and dropped pursuit of the planning grant street intersections. “Together we’ve been for those Clinton and Rhine Street sta- able to come up with some pretty creative tions. “We ceased having the station-area and safe designs,” he said, adding that de- discussion group planning sessions a year signing grade-level light rail tracks at in- and a half ago,” Wickstrom said. It’s not tersections where bicycles cross is trickier that much of a setback anyway, he added. than some might think. “It’s important to A lot of what happens will depend on have bikes cross tracks perpendicularly; the market. “And we have the potential otherwise, the bike wheels get stuck in the to look at zoning and development in the tracks,” he said. Comprehensive Plan.” M Even congested places for bikes, like the southeast side of the light rail station Portland freelance writer Merry MacKinnon at OMSI, where bicyclists will have to often rides her bike, TriMet buses and MAX contend with freight, pedestrians, buses, and doesn’t own a car. trucks and cars, have been carefully stud-

Page 30 Metroscape