Beyond the Field of Dreams: Light Rail & Growth Management in Portland 1 a Choice How to Grow

Home , Blagen Block, Liberty Centre, Lloyd Center, Lloyd Center Tower, One Pacific Square, Oregon Square

September 1996

G.B. Arrington, Jr. Director, Strategic Planning Tri-Met MAX has been a vehicle to move people, to shape the region, defer highway investments, clean the air and to enhance our quality of life. he Portland region has received is part of a conscious strategy to We are now facing one of our Tconsiderable attention for our shape regional growth by coordi- toughest challenges yet: accommo- two-decade long experiment nating transportation investments dating significantly more people balancing land use and transporta- with land use policies. MAX has without losing our livability. Some tion. Portland took the road less been a vehicle to move people, to 645,000 new residents are forecast traveled by saying “yes” to growth shape the region, to be added to the four county area without the negatives of defer highway in the next 20 years. That is the more cars and investments, equivalent of another 1-1/2 cities freeway clean the air and the size of Portland. lanes. to enhance our Once again, light rail is at the Today, quality of life. forefront of a conscious strategy to Portland Transit shape regional growth by coordi- offers a and land use nating transportation investments quality of life have enjoyed with land use policies. A 18-mile that is the envy great support $944 million extension of MAX to of much of the in Portland the west will open for service in nation. This paper because 1998. Portland’s voters and the surveys the roots of they are Oregon legislature recently autho- the Portland strategy not an end in rized $850 million in local funding by examining where the themselves. They are the for a 21-mile extension to the region has been, the results tools our community leaders have south and north. so far and our aggressive used to build a more livable strategies for the future. community. The Portland story The success of Tri-Met’s light then is one about community rail system—MAX—has been the building with light rail. subject of a lot of attention. What is now becoming better understood is that MAX is more than a transportation investment. MAX

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 1 A Choice How to Grow

y any objective standards collaboration between strategies Bthe Portland metropolitan and among governments: area has been quite successful in integrating land use and transit. • The Central City Plan focuses Investment in new development the most intensive develop- adjacent to MAX already exceeds ment adjacent to transit — by the cost of the project by six fold. design transit is put in the center (See Table One) of the action. Transit is the armature to define where the Portland’s downtown has largest buildings are allowed; not always been healthy. In 1970, the downtown, like • Development is required to most of those across America, occur at a pedestrian scale with was dying. Portland made a a mix of uses — blank walls are choice on how to grow. actually illegal, buildings must be Based on that success, we up to the street, and 60% of know it’s possible to grow ground floor uses retail; and still keep our livability. There is no Faustian • Strict limits have been placed Bargain that says traffic jams and on the amount of commuter dirty air are the unavoidable results parking — downtown office of growth. They are the results of building have tight parking growing the wrong way, making maximums, but no minimums. the wrong choices. The closer you are to MAX and the transit mall, the less parking Those successes take time and you are allowed. For example, require stewardship. That noted new office development on the “urbanologist” Mae West was fond transit mall is allowed at .8 of saying “anything worth doing is spaces per 1000 square feet. The worth doing slowly.” In Portland, Urban Land Institute standard we have more than 20 years of for “parking” a typical American leveraging transit investments to office building is six fold higher achieve our land use objectives. — 5 spaces per 1000 square feet; The Rewards of • An investment in improved Growing Right transit — since 1971 Tri-Met has expanded service by 140% Downtown Portland provides and seen more than a 220% an example of making smart increase in ridership. Today the choices—the rewards of growing downtown benefits from invest- the right way. The key elements in ments in the Portland Transit Portland’s success include a Mall, Fareless Square and MAX;

2 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Without Tri-Met, six 42-story parking structures would have to be added to Portland’s skyline.

• A balanced transportation the 1970’s to no violations since strategy — for 20 years, no new 1987 and traffic congestion has not road capacity has been added to markedly increased. Transit has the downtown. Portland actually done its share. Some 40% of tore out a six lane expressway to downtown work trips arrive on create a downtown riverfront transit. Transit has become the park, traded in the money for mode of choice for 64% of two new freeways and invested in Tri-Met’s riders, meaning they transit instead; and have a car available for the trip or choose not to own a car. • An Urban Growth Boundary (UGB) that legally defines As for the transit land use what’s urban and what will connection, it’s physically irrevers- remain rural — the 235,000 ible. Even if we wanted to acre growth boundary has change course, it would be changed less than 3% since it difficult, if not impossible. For was adopted in 1979. At the 20 years, the downtown same time the population inside parking supply and the the UGB has increased by more arterial and freeway than a third. grid leading to downtown have been The result is a vital, vibrant undersized with transit in mind. A downtown, anchored by the 1984 study estimated without Tri- Transit Mall and MAX. The Met, six 42-story parking struc- downtown area has grown from tures would have to be added to some 50,000 jobs in 1975 to Portland’s skyline and two addi- 105,000 jobs today—an increase of tional lanes to every major highway over 100%. At the same time, entering the downtown. air quality has improved from a violation 1 of every three days in

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 3 Table 1 Development Adjacent to MAX: A Partial Inventory

Downtown 42. Port of Portland Building ...... 393,000 81. Duplex 508 NE 113th ...... 117,000 1. One Pacific Square ...... $ 22,000,000 43. Kaiser Permanente Building ...... 2,170,000 82. Office Building ...... 275,000 2. Three Pacific Square/ODOT ...... 8,700,000 44. Holiday Corridor ...... 22,000,000 83. Duplexes (2) ...... 225,000 3. Parking Garage/Heliport ...... 8,800,000 45. Lloyd Place Apartments ...... 12,000,000 84. Duplex 173rd/Burnside ...... 134,000 4. Fleishner Block ...... 2,500,000 46. Liberty Centre ...... 40,000,000 85. Dental office ...... 164,000 5. Blagen Block...... 2,000,000 Hollywood 86. Restaurant Remodel...... 97,000 6. Skidmore Fountain Bldg...... 4,500,000 87. Burnside Station Apartments ..... 1,697,000 47. Gold’s Gym ...... 650,000 7. Ankeny Park ...... 300,000 88. Group Home - addition ...... 400,000 48. Hancock Apartments ...... 226,000 8. New Market Theatre & Village .. 10,000,000 89. Stark Street Station Apartments .....1,000,000 49. Duplex ...... 100,000 9. The Pine Street Building ...... 90. Duplexes (19) 183nd/Pine/Ash ...... 3,070,000 50. 46th & Hancock Apartments ...... 325,000 10. Lombard Building ...... 625,000 Gresham 11. Lawrence Building ...... 4,300,000 Gateway 91. GreshamTown Fair ...... 30,500,000 12. Federal Office Building ...... 19,500,000 51. Fred Meyer Shopping Center ... 27,000,000 92. Pony Solider Motel ...... 1,500,000 13. One Financial Center ...... 42,000,000 52. Sisters of Providence ...... 2,500,000 93. Pacific Crest Rehab...... 500,000 14. Willamette Block ...... 4,000,000 53. Mervyn’s ...... 2,600,000 94. Gresham Corporate Center ...... 1,300,000 15. Paulson Capital Building...... 6,300,000 54. Gateway Retail Center ...... 777,000 95. McKeel Office Building ...... 64,000 16. Morton Cole & Weber Building 6,300,000 55. Duplex 506 NE 94th ...... 126,000 96. Medical Office ...... 340,000 17. Thomas Mann Building ...... 2,200,000 Burnside 97. Weil Pedestrian Arcade ...... 75,000 18. Yamhill Market Place ...... 7,000,000 56. Pacific Power Offices ...... 2,200,000 98. Bristal Woods Apartments ...... 2,740,000 19. Dayton Building ...... 3,300,000 57. Medical Offices...... 419,000 99. Eastman Heights Apartments ...... 570,000 20. Centennial Block ...... 6,000,000 58. Medical Offices ...... 1,500,000 100. Towne Fair Apartments ...... 7,700,000 21. 200 Yamhill Building ...... 4,200,000 59. Offices ...... 615,000 101. Cleveland Station Apartments ...... 22. Director Furniture Building ...... 5,600,000 60. Transamerica Title Insurance Co. ... 1,000,000 102. Regional Library ...... 1,100,000 23. Kress Building ...... 3,000,000 61. Convenience Retail, 122nd Avenue .... 60,000 103. Easthill Church Addition ...... 782,000 24. Caplan’s Sporting Goods ...... 500,000 62. McMullen Terrace Apartments. .... 500,000 104. City Hall Addition ...... 6,395,000 25. Pioneer Place ...... 180,000,000 63. Glen Fair Park Apartments ...... 105. Senior Apartments ...... 4,084,000 26. American Bank Building ...... 3,750,000 64. Windsor Court Apartments ...... 2,500,000 106. “Old City Hall” - remodel ...... 966,000 27. Pioneer Courthouse ...... 8,000,000 65. Try-MAX Apartments ...... 1,300,000 107. 40 NE Burnside - retail tenant .... 897,000 28. Pacific First Federal ...... 22,000,000 66. St. Vincent de Paul Villa 108. Medical Office ...... 1,000,000 29. Nordstrom ...... 8,000,000 Apartments ...... 1,200,000 109. Guide Dogs for the Blind ...... 376,000 30. Zell Bros...... 1,000,000 67. 160th Avenue Apartments ...... 275,000 110. Gresham Professional Group ...... 92,000 31. Offices 320 SW 2nd ...... 400,000 68. Rockwood Park Apartments...... 1,800,000 111. 1021 NE 1st – commercial tenant565,000 69. Rockwood Station Apartments ... 5,700,000 Lloyd Center 112. Restaurant Remodel ...... 110,000 70. Rosewood Terrace Apartments ...... 260,000 32. Oregon Convention Center ..... 85,000,000 113. 40 NE 2nd - improvements ...... 75,000 71. Apt. Complex, 157th Avenue ...... 33. State Office Building ...... 11,500,000 114. Trail’s End Housing ...... 1,700,000 72. Mayfield Court Apartments ...... 1,110,000 34. Holiday Inn ...... 3,000,000 115. Gresham Central Apartments ... 4,400,000 73. Burnside Fir Apartments ...... 905,000 35. Oregon Square ...... 931,000 116. Duplexes (5) ...... 850,000 74. 181st Office ...... 86,000 36. Lloyd Center Mall ...... 200,000,000 117. Oneota Townhomes ...... 1,500,000 75. Plaza 181 ...... 110,000 37. Lloyd Center Red Lion Inn ...... 38,000,000 118. Apt. Building 38. Moyer Theatre ...... 3,000,000 76. Rockwood Fred Meyer ...... 400,000 1530 NE Cleveland ...... 2,194,000 77. Bayclub Apartments ...... 1,200,000 39. Federal Office Building East ..... 55,000,000 119. Gresham Civic ...... 3,540,936 78. 182nd/Pine Apartments ...... 770,000 40. Lloyd Center Tower ...... 33,000,000 120. Tri-Met Parking Garage ...... 5,301,000 79. Kaiser Rockwood Clinic ...... 4,600,000 41. Rose Garden Arena ...... 262,000,000 80. Duplex 21 NE 108th ...... 141,000 TOTAL ...... $1,319,860,000

4 Beyond the Field of Dreams: Light Rail & Growth Management in Portland TRI-MET

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 5 Community Building with Light Rail

The editor of an eastern business alone does not make a successful journal was so taken with Portland downtown. Building rail lines is not after a visit that he wrote “if Walt an end in itself. The Disney had built a city where Portland story is more people really live, (Portland) about community could be it.” building than light rail Some building. MAX has cities been an effective mistakenly means to the end of a believe by livable community. having light What the commu- rail technol- nity is interested in ogy, they can is livability. realize the Transit and land results’ we’ve use enjoy great seen in Portland. support because Just like a roller they are the tools coaster in a mountain Portland has used to does not make Disneyland, light rail achieve a livable community.

The Portland story is more about community building than light rail building.

6 Beyond the Field of Dreams: Light Rail & Growth Management in Portland “Transit corridors are the spine for future growth. The most intense development will locate along the transit corridors.”—Central City Plan

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 7 A Partnership for help implement their plans. Light Success: Transit rail won’t create new growth, but and Land Use with supportive plans and policies in place, it can influence where Tri-Met has not sought land development goes and what is use authority. A key to our success looks like. is what I would call the “Tom Sawyer approach.” Get someone “Field of Dreams” else to do the land use planning for The “Field of Dreams” theory you. Like Tom Sawyer in painting of development — build it and his fence, we got someone else to they will come — only works in do the planning for us. In this case, the movies and at freeway inter- our Huckleberry Finn was local changes. A desire to capture the government. development potential presented by A successful land use and transit light rail resulted in a $1.2 million strategy requires a working part- planning program paid for out of nership between local governments the MAX construction budget. The and the transit district. Like any Transit Station Area Planning partnership, each side has expecta- program laid the foundation for tions of the other. Tri-Met is development along the line by asking local governments along the funding the work of local govern- rail corridor to take action to make ments to determine market poten- development physically more tial, plan for the urban fit of the dependent on transit by limiting project, and rezone station areas. parking, constraining automobile Before construction started on access, widening sidewalks, im- MAX, every station area along the proving pedestrian access, allowing corridor had been re-zoned to a mix of uses, and higher density stimulate transit related develop- development. In exchange for that, ment around the stations. Local they expect Tri-Met to provide the governments along the corridor necessary service to accommodate participated in the program their growth. In more blunt terms, because they saw MAX as a means local government is shifting a to implement their comprehensive major part of the cost of growth plans. New higher density zoning, to transit. Before construction started specifically tailored to light rail, on MAX, every station area Light rail is the infrastructure was put in place around the along the corridor had been investment to handle the transpor- suburban stations. At the end of re-zoned to stimulate transit tation pressures of growth in major the line in Gresham, their down- related development around corridors. Rail then also becomes a town was replanned around rail as the stations. powerful tool for governments to a focal point.

8 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Over $1.3 Billion in Development Portland is demonstrating that In the suburban section of the light rail linked with land use line between Gateway and Gre- planning can have a dramatic sham, development has been impact on shaping regional slower to get started and more growth. With ten years of operat- modest. Between 1990 and ing experience, the results are very 1994 over $125 million in promising. Over $1.3 billion improvements have been worth of development exceeding made within a half-mile of ten million square feet are under MAX stations since 1990. construction, or has been com- Garden apartments pleted, immediately adjacent to the typify much of the new MAX line since the decision to development that has construct the project. Plans have occurred at all the Burnside been announced for another $440 Street stations. To date, there have million worth of additional been more than $50 million worth improvements. The impact of of apartments constructed adjacent MAX has been felt from end to to the stations. end. Development activity is The development response to greatest in the downtown and MAX has been practically invisible Lloyd Center. In downtown, around the three stations in the MAX has accelerated historic Banfield section. Here, MAX is renovations, influenced the design wedged into a cut next to an urban of office buildings and helped freeway which separates it from the make new retail development neighborhoods it serves. feasible. Virtually every parcel of MAX’s impact on development vacant land adjacent to MAX by all accounts appears to be downtown has changed hands, positive. The assessed value of been developed, or had develop- station area properties has risen ment plans announced. faster than the countrywide average

Over $1.3 billion worth New Development Adjacent to MAX of development has Lloyd occurred immediately District Banfield adjacent to the MAX line Downtown Burnside since the decision to construct the project. $767M $1.3M Gresham $396.4 M $68.3M $77.7M

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 9 according to a 1993 study. While 1. Lloyd District — Moving countrywide assessed values Downtown East. MAX has increased by 67.5% from 1980-91, changed the shape and configura- the evaluation of several stations tion of downtown Portland. The shows a more rapid increase: Lloyd Willamette River has always been a Center (+134%); 162nd (+112%); physical and psychological barrier and 181st (+491%). constricting the core to the west side Businesses are reporting higher of the river. MAX has been given sales volumes and increased foot credit for transcending those traffic because of MAX. In a 1987 barriers and transforming the Lloyd “ survey of 54 businesses located District into “downtown east.” near the MAX line, 66% of The transformation of the ” business owners said that their Lloyd District has been quite businesses had been helped by impressive. The District has been being located near MAX. More the beneficiary of nearly six out of specifically, 54% said they saw ten dollars invested adjacent to increased sales volume as a result of MAX. Four key decisions in being located near MAX. The reshaping of the Lloyd District strongest benefits of MAX were have a “MAX factor”: attributed to increased business First, the decision to locate the visibility rather than customers Oregon Convention Center getting off the light rail and adjacent to MAX on the east side. making purchases. The presence of MAX was a critical factor in the decision to locate the The Biggest Impact of $85 million Convention Center MAX is Long Term: across the Willamette River outside Three Examples of the downtown. MAX is the spine As with other rail systems, the connecting hotels, restaurants, the major development response to Convention Center and the MAX has always been expected to downtown together. The 400,000 occur after the system has been in square foot Convention Center was operation for several years and its designed to front onto MAX. The ridership potential fully demon- link to MAX was important enough strated. MAX has not caused new to the Convention Center that they development to happen in paid for a new MAX station. The Portland—it has influenced the new Convention Center MAX location, design and timing station and plaza create the front of development. door for arriving and departing conventioneers. Interestingly, there Three projects are illustrative of the is no door facing onto the 800 car long term impact of MAX: parking lot.

10 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Beyond the Field of Dreams: Light Rail & Growth Management in Portland 11 Second, Melvin Simon and Like it’s neighbor the Conven- Associates cited MAX as a factor in tion Center, the Rose Garden is their decision to buy and undertake designed with transit in mind. It a $200 million renovation and better be—the two projects will expansion of the 1.3 million have a combined total of just 3,446 square foot Lloyd Center Mall. off-street parking spaces for over MAX also has been a focal 1.1 million square feet of space. Of point for Pacific Develop- that number, 369 spaces are in ment in its plans to develop Court One (the Blazer’s entertain- 70 acres of land they ment complex) and will not be acquired paralleling available for arena customers. Tri- MAX in the Lloyd Met has a long term contract with Center area. Liberty the Blazer’s to serve the Rose Insurance recently Garden with bus and MAX service. acquired two of Blazer fans have figured out that those blocks and is nothing gets you closer to the Rose under construc- Garden than MAX. In it’s first year tion with a $40 Tri-Met carried 20% of the fans to million 350,000 Blazer games. square foot 17 story The New York Times summed headquarters facing onto the it up pretty well in an August 25, Seventh Avenue MAX station. 1991 article: Finally, the decision by the “The Portland Development Portland Trailblazers to build a Commission estimated that since the $262 million arena also has a Convention Center plan was “MAX factor.” The 20,340-seat announced four years ago, more than $500 million in private funds have Rose Garden opened in 1995 been invested within a mile of the nestled between the Rose Garden site. Projects values at an additional MAX Station, the Convention $750 million have been proposed.” Center and the existing 12,666-seat “The linchpin was the completion Memorial Coliseum. The Trailblaz- in 1986 of a light rail system ers bet $228 million of their money connecting this district to downtown. against $37 million in public funds Four stations serve the roughly 100- on a master plan which relies on a block Lloyd District. ‘The installa- tion of light rail made a big strong transit and pedestrian difference, ’ said Bill Scott, president emphasis to succeed. According to of Pacific Development, a company Portland Trailblazer President that bought 70 acres of the district Marshall Glickman “Light rail made from the Lloyd Corporation four it possible and viable to build the years ago. ‘The purchase solidified Pioneer Place. The easiest way arena at this location. It’s the reason the Convention Center area and made it possible to attract develop- to Saks Fifth Avenue it’s here today.” ment interests, ’ he said.” is on MAX.

12 Beyond the Field of Dreams: Light Rail & Growth Management in Portland 2. Pioneer Place — would have been on the cutting Portland’s “100% Corner.” edge of suburban development. The Rouse company is building a Like the downtown Rouse Project, four-square-block, retail/office MAX would be the most conve- complex at the “100% corner” of nient way to arrive. A new MAX downtown Portland. The $180 station would deliver riders right million first phase, anchored by the into the middle of the action. For region’s only Saks Fifth Avenue Tri-Met, the mall would have store, opened in 1990. Transit meant increased ridership and a surrounds the project on three long term cash flow for the light sides with two light rail stations rail system to make it self-sustain- and the Portland Transit Mall. ing within seven to eight years after Pioneer Place is the bright star in the center opened. Congress Portland’s growing retail galaxy. earmarked $14.5 million in Local media sources report that its’ Section 3 funds to be used for per square foot sales far outstrip Tri-Met’s share of the sell-lease- any of its competition. The easiest back arrangement. way to get to Pioneer Place is by Unfortunately, not all good With MAX as the focal point in MAX. You get off MAX, step ideas make it from the proposal the center of the 900,000- across the platform (which is also stage to reality. Winmar walked square-foot Winmar/Tri-Met the sidewalk), and you are at the away from the project in early Mall, it would have been front door. No automobile can 1992. A variety of factors contrib- on the cutting edge of equal this degree of access. For the uted to its downfall. The Federal American development. developer, light rail means a lower Government’s position changed on parking ratio, lower development the use of their funds. costs, and a location advantage While negotiations with US over the competition and access to DOT dragged on, the market a broader retail market. window of opportunity slammed 3. Gresham Civic Neighborhood. shut as the national recession At the other end of the line in weakened the prospects for any Gresham, MAX held out the new projects. Faced with high promise for changing how we view carrying costs, the developer had perhaps the most auto-oriented no choice but to walk. type of American development: the It’s been said good things come suburban mall. After two years of to those who wait. That’s appar- planning, Winmar Company of ently the case with the former Seattle submitted design plans in shopping center site. A new transit April 1990 for a $100 million, friendly re-incarnation is moving 900,000 square foot regional mall, into construction — the Gresham built over and incorporated Civic Neighborhood. The City directly into the light rail line. The adopted the plan for the site last mall, a joint project with Tri-Met, spring. The plan mixes residential /

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 13 commercial / retail uses / a new 1,450 multiple family units with street grid, a new MAX station virtually no government assistance. and a plaza at the City Hall All told, 26 projects next to MAX station to form a transit suburban MAX stations have been oriented community. built at a cost of nearly $50 mil- Winmar, the City and Tri-Met lion. The average complex has 50+ are moving ahead to prepare the units with a project size ranging site with infrastructure. Final from 11 to 263 units. Project design on the MAX station is densities are quite conventional, underway. Construction of the 20 to 25 dwelling units per acre, MAX station is tied to a trigger averaging 1.5 parking spaces per Over 1,450 multiple family point with Winmar on the square unit. Like the rest of east Mult- units in 26 projects have been footage of transit supportive nomah County, occupancy rates built next to suburban MAX development on the site. The City are in the high 90 percentile ranges. stations at a value of has preliminary development plans The presence of MAX commands a nearly $50 million. and expects a development applica- slight premium on rents according tion in the spring for 300,000 to apartment managers. square feet of retail / office / Some higher density products theater / hotel / 265 units of are now in the pipeline and may second floor residential over the portend a trend. At 143rd and commercial space, and 400 to 700 Burnside, the 24 unit Glen Fair units of multiple family housing. Apartments were built at 40 dwelling units per acre. An area Suburban In-Fill — of abandoned warehouses is being 1,450 Apartment Units transformed into higher density housing in central Gresham. The Changing the character of the 97 unit Gresham Central Apart- Burnside corridor will be a gradual ments are near complete next to process. Postwar suburban homes the Gresham Central MAX stop dominate the largely built out at 34 dwelling units per acre with corridor. Planners faced the 1.5 space per unit parking ratio. delicate task of shoe-horning in multiple family zoning around rail Not Enough stations while putting a premium on preservation of stable neighbor- Just to Plan hoods. What vacant land there is One of the important lessons tended to be in small ownerships. from MAX is that it’s not enough In that tough environment, the just to plan. Planning should not results have been encouraging. be confused as an illusion for Developers have assembled sites up action. The planning has to be and down the corridor for some followed up with implementation.

14 Beyond the Field of Dreams: Light Rail & Growth Management in Portland In too many instances, that was Rx for Development not the case with MAX. The Plans themselves can be an planning was funded but not unintended barrier to implementa- always the implementation. tion. Like with our children, For the general public, the sometimes we over protect — success of planning is measured by instead of nurture — to achieve their experience on the ground— the things we hope for the most. like the level of congestion on the Special regulations tailored to way to the store. They also notice transit can create the perception of whether the new development next a “regulatory desert,” stopping (not door gives them access to a new fostering) transit-supportive nature trail or a safe way for kids to development. A successful plan- get to school that never existed ning program will also look for and before. Those opportunities are provide incentives to development, spelled out on plans. They become not just extra regulations. Light rail missed opportunities or reality on a station areas ought to be develop- case-by-case basis. ment “hot spots” the private sector Taking planning from what seeks out, not a place where you could be to implementation takes face extra red tape and regulations. follow through. That’s found in The strongest development hammering out the details of response to MAX has come when: planning implementation and specific project designs which live • Developable land was consoli- or die in the supportive ordinances dated under single ownerships; and follow through by local • Multiple public and private planners to get the details right. objectives were being pursued; Otherwise growth is just more cars on your neighborhood street and • Implementation tools were in too many people living too close place and available; together. Making the plans come and, to life may require the commit- • Stations were ment of local planning staff to well located follow up with developers to make in places sure the intent of the original plan with dev- gets carried out. At Sunnyside elopment Village, a suburban transit oriented potential. development, the local government has one and a half full time staff doing just that.

A successful planning program will look for and provide incentives to development, not just extra regulations.

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 15 The Road We p to now the Portland story “The Impossible Must Uhas largely been the story of Be the Answer” MAX and a revitalized downtown. The genesis of Oregon’s land Are Headed The challenge is to take those use program was to keep cities out lessons and apply them on a of farms and forests. Containment Down Doesn’t regional scale. Many of the same of growth has been largely success- trends which have overtaken other ful. Now a new generation of Lead to Where cities are at work in Portland’s transportation and growth manage- suburbs—disappearing open space, ment strategies aimed at how our We Want to Go increased dependance on the urban areas grow is taking hold in automobile and an explosion in Portland at the local, regional, and Vehicle Miles Traveled (VMT). state level. It’s a new page out of an “Unless we change the direction old book. Once again, the Portland we are going, we may end up region has responded to a perceived where we are headed” (Chinese threat to its’ quality of life by Proverb). Increasingly, the road we creating a vision of the future we have been headed down does not would like to see and a legal/policy lead to where we want to go. The framework to get there. region’s current generation of plans Oregon’s rich palette of land for transportation and land use laws make us somewhat unique use are a good case in point. and easy to dismiss for not being If we were “successful” in applicable elsewhere. “How did implementing those you do that ?” and “That would be plans, congestion on a impossible back home” are often regional basis would heard rejoinders from visitors to increase by 146% in Portland. As Sherlock Holmes the next 20 years. once said, “when you’ve exhausted That “success,” all possibilities, the impossible however, would must be the answer.” What is be considered important not to lose sight of is failure by most citizens. that the motivation to create the The problem is not a failure kind of future citizens wanted of transit as much as an all too came first, then the laws followed. familiar pattern of land use hostile The Portland region has succeeded to mobility. The suburban devel- so far because people cared enough opment model is as much of a about their future to create the problem for roads as it is for tools needed to help create it. transit. Increased spending on roads and transit alone is not the solution. Changing land use has to be part of the equation.

16 Beyond the Field of Dreams: Light Rail & Growth Management in Portland A New Generation of Westside Light Rail: Growth Management A Billion Dollar The second generation of Development Gamble growth management initiatives The region’s most aggressive now underway increase the venture into balancing transportation reliance on light rail as a tool to investments and land use policy is create the kind of future we want. the Westside Light Rail Project. By A common thread in each of the fall of 1998, riders will be able to them is a desire to: take MAX 18 miles west from • Grow without putting our downtown Portland to Hillsboro. livability at risk; The success or failure of the public’s nearly $1 billion invest- • Contain growth inside our ment in the Westside will be existing U.G.B. by growing up, determined in large part by what not sprawling out; happens around its 20 stations. • Preserve existing single family Unlike the East side MAX line, a neighborhoods by increasing substantial amount of land around density in existing centers and the Westside is prime for develop- along transit corridors; and, ment. From the air, some of the • Assure that new development is Hillsboro station areas resemble a Orenco Station Area designed to be served by transit “Field of Dreams.” at a pedestrian scale with a mix As NEWSWEEK put of uses. it in May 1995 we “are building transit Since 1992 local governments have first, literally in been required to change their plans fields, in the hope to comply with state mandates to development will guide growth around transit. follow.” There is Those new requirements, among more vacant land other things, call for a 10% around one station reduction in VMT and parking per in the Hillsboro capita in 20 years, adoption of segment than we local regulations to allow transit- had around all the oriented development, and tight East side stations regional parking ratios for non- combined. All told, residential uses. in 1994 there were approximately 1500 Light rail is being used acres of vacant developable land in as a tool to create the the vicinity of Westside stations. kind of future we want. That is nearly three times the amount (Source: METRO) of vacant land on the East side.

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 17 Cornell Rd

Elam Young Old Cornell I-5 Hillsboro Pkwy 5 Rd 0 4 Willamette

Cornell Rd. 18th - Central/ I d SE 3rd Orenco/ ll R

Cornelius Pass Rd e 34th US 26 rn NW 231st Co Government Tuality 28th Hawthorn Quatama/ Walker Rd Rd ell Portland 84 Center Hospital/ Farm NW 205th Corn Civic River I- SE 7th Fair Complex/ 158th Leahy Rd Stadium Main St Hillsboro Airport 231st Quatama Rd Rd Kings Hill/ Washington e Morrison Burnsid SW Salmon Baseline Rd Yamhill 4th Washington/ Sunset 3rd 205th d

216th R SE 12th Transit Barnes Jefferson Adams 173rd

7th Washington 10th Baseline Rd Willow Creek/ Murray Blvd Center Barnes Rd SW 185th Park d Goose v l B Hollow/ Elmonica/ ls SW Jefferson SW 170th Jenkins il LEGEND H r US 26 185th da Ce Beaverton 7 Westside MAX Tunnel Merlo/ Creek SW 158th y21 Existing MAX Light Rail Stations Hwy 8/Tualatin-Valley Hwy Hw d Millikan n R Beaverton o d 170th 53rd y n R 1 Way a C y Central r r Millikan e F s ll

ho c Beaverton S Transit Hwy 10 Beaverton - Hillsda Westside MAX Center le Hwy ton Rd Farming

The region’s most aggressive venture into balancing Importantly the presence of went all the way to the White transportation investments vacant land is complemented by a House. USDOT was successful in and land use policy is the strong development market. arguing that if you included the Westside Light Rail Project. Portland’s market for suburban land use benefits of the Hillsboro development and apartments have extension in the equation the been consistently rated as some of project was cost-effective. the hottest in the country. The Federal Transit Administration’s (FTA) approval An Urban Laboratory of Section 3 New Start Funding The Westside carries with it a for the Hillsboro extension sets a significance beyond the corridor. new national precedent. In the The project is being transformed funding agreement the parties into an urban laboratory. The ”recognize that the success of the growth management strategies Hillsboro extension will depend, in being debated in the rest of the large measure, on local implemen- region will be tested first on the tation and enforcement of long Westside. term urban containment policies The Westside project now has that lead to transit-supportive land national significance as well. The use patterns in the corridor.” Portland region’s commitment to Federal funding is contingent on integrating transportation and land the enactment of and local compli- use made the critical difference in ance with Metro’s Region 2040 getting a Full Funding Grant concept plan, adoption of local Agreement for the six-mile exten- station area plans which positively sion of the Westside project to impact ridership and adoption of Hillsboro. The Office of Manage- policies to meet the State Trans- ment and Budget (OMB) recom- portation Planning Rule ( see mended against funding the appendix #2). With the reward project because they said it was not comes responsibility. If local cost-effective. There is an old government’s don’t produce the Washington joke that “the OMB promised land use actions, Tri-Met knows the cost of everything, and is on the hook to refund the federal the value of nothing.” The debate government $75 million.

18 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Downtown Hillsboro The area around each Westside nated set of legally binding interim station is undergoing an intensive zoning regulations. Complimen- station community planning and tary regulations are expected to be development program modeled on adopted soon by the remaining the experience with MAX. The $4+ government. For the areas within million effort includes the four local mile of Westside stations the governments, Oregon’s DOT, our interim zoning: regional government Metro and • Establishes a list of auto-oriented Tri-Met. Ironically, the same FTA uses which are prohibited in that made Hillsboro funding Land use plans made station areas; contingent on land use would not the difference in getting allow the planning work that helped • Sets minimum residential and Federal funding for the justify the project to be paid for out commercial densities; Hillsboro extension. of Westside project funds. Funding • Creates maximum parking (Source: Hillsboro) is equally divided between Tri-Met limits; and General Funds, regional and state flexible Federal Surface Transporta- • Applies a design overlay which tion Program funds. Local govern- requires pedestrian connections ments are now using those funds to and building orientation to the develop and adopt new legally light rail station. binding land use plans, development codes, capital improvement Light Rail: Good plans and implementation strategies Servant, Bad Master tailored to light rail for a half-mile It’s often said that the automo- around each station. bile has been a good servant and a bad master. The same can be true Planning of light rail. To maximize the land Twilight Zone use opportunities afforded by light Planning on the Westside rail, it’s critical not to let the actually started nearly two years technology or the engineers before station community plan- become the master. If we are really ning. Tri-Met was concerned local in the community building government lacked the legal business, the design of light rail leverage to assure that only transit- must be responsive to a variety of supportive development occurred constituencies. For Tri-Met, that adjacent to Westside stations. has meant a gradual change in how we approach the planning and To address the interim period design of light rail facilities. For of two to three years before station example, we now give more community plans were adopted, attention to land use, development three of the four local governments and the pedestrian environment in the corridor adopted a coordi- earlier in the design process.

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 19 Tri-Met assembled a team of oriented spine between Intel and architects and planners before the MAX station lined by parks, preliminary engineering started on high density residential, and the Hillsboro segment to work neighborhood commercial with with the engineers. Their charge residential above. Transit oriented was to better integrate the project zoning for the site was approved in into the community while reduc- August 1996. At the same time ing costs. The team was able to PacTrust submitted a master plan eliminate two stations identified in based on the zoning which would alternatives analysis and move four allow for 550,000 Sq. Ft. of stations. The result is lower capital shopping / hotel / theaters, Tri-Met changed the design costs, a faster preliminary engineer- 100,000 Sq. Ft of office and other of the Hillsboro extension to ing phase, less community contro- commercial, 1200 apartments and better capture development versy and a design that seeks to 400 small lot single family homes. opportunities. maximize the opportunity for Construction is expected to start transit-supportive development. by next spring. New Communities “Just Do It” Focused on MAX The Westside station commu- Just north of the Westside line, nity planning program has been Intel is in the process of investing nimble enough to allow for public/ $2.2 billion in the nation’s largest private development master plans at and most expensive silicon chip fab other stations with short-term plant. Some 1,400 employees are opportunities. At Beaverton Creek, expected at build out. All the land Tri-Met was a partner with four between the Orenco MAX station property owners and several and the Intel plant — some 190 developers in preparing a master acres — is owned by PacTrust. plan for the 122 acre vacant site bi- The land was originally acquired sected by the Westside MAX line by PacTrust for industrial uses in immediately south of Nike’s World Portland’s burgeoning Silicon Headquarters. The $344,000 Forest. PacTrust switched gears master plan set parameters for a with the confluence of the multi- transit oriented development which billion dollar investments in Intel’s would have included 1,325 dwelling plant and Westside MAX. units, as well as retail, office, and Tri-Met and the City of natural areas. Before the project Hillsboro are working with moved into construction Nike PacTrust to develop a transit characteristically decided to “Just friendly Master Plan for the entire Do It” and bought the northern site. Their vision is to create a portion of the site for undisclosed community with a pedestrian purposes. For now, Nike is busy moving ahead with a $200 million

20 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Beyond the Field of Dreams: Light Rail & Growth Management in Portland 21 1 million square foot office expan- Good Policy and sion of their 5 year old campus. Good Politics On the southern half of Beaver- The marriage between growth ton Creek, Trammel Crow Resi- management and MAX has proven dential is well under construction to be more than good policy, it’s with what their news release calls also good politics! Given the cost “the region’s premiere example of a of new rail lines, it’s a rare commu- ‘transit friendly” community nity that has enough wealth to (apartments, townhomes and build rail just to move people. In shops) at a MAX light rail station.” Portland, MAX has been part of a In June 1996 they broke ground strategy to revitalize the down- on their second phase of develop- town, defer highway investments, ment, Murray North — 554 clean the air and shape growth. townhomes, mid-rise apartments Those multiple objectives have with ground floor shops, and helped guarantee a return on the garden apartments. Murray North public’s investment and leverage joins the 264 unit CentrePoint the broad base of political support garden apartments which opened necessary to secure the funding to in August. The fate of the Nike build a rail line. property is still unclear. Tri-Met and the City of Beaverton are in The support for light rail in Portland’s voters see discussions with Nike. Fortunately, Portland may border on the MAX as an investment in under the zoning whatever hap- irrational. For over seven years, livability. In two elections pens on the site will have to be MAX has enjoyed public support they have approved expanding transit friendly. at the 90% level. the system four-fold— Support for building more From 15 to 58 miles. roads, on the other hand, has diminished. In a recent survey, only 14% of the region’s voters favored expanding the road system over more transit. In focus groups, people tended to see spending more money for roads as “keeping up” or “fixing up”—necessary but not very positive. Spending for MAX had more of a pull as an antidote for some of the pains of growth. The political link between MAX and Portland’s livability has twice been affirmed by voters. In 1990 and 1994 expanding MAX

22 Beyond the Field of Dreams: Light Rail & Growth Management in Portland was positioned in campaign Growth Management advertising as an investment in & MAX: A Competitive livability—an opportunity to avoid Advantage the gridlock, sprawl and dirty air that have plagued other cities. A big part of MAX’s value has been its ability to serve as a catalyst The first vote came in 1990, to move the region’s growth when Portland voters were asked to management aggressive agenda. approve a $125 million Westside The success of that agenda is now light rail General Obligation (G.O.) propelling MAX expansion and bond measure backed by local land use planning to a new level. property taxes. The verdict was a resounding 73% “yes.” In the We hope to replicate the Hillsboro land use/MAX competi- — Urban Land November 1994 Republican tive advantage in seeking funding landslide, only one transit measure for the South-North project. That in the country was approved. means incorporating land use into Portland voters responded to a the project as a major element of $475 million MAX GO bond with preliminary engineering and a solid 63% “yes” vote. Those alternative analysis. By the time a bonds will serve as regional match- locally preferred alternative decision ing funds for a 21-mile $2.85 is made, local governments will be billion “South/North” MAX line asked to make legally binding land connecting Clackamas County, use commitments supportive of Oregon and Clark County, Wash- light rail. Land use will also play a ington to downtown Portland. pivotal role in decisions regarding In two successive measures, alignments, station location, voters approved expanding termini, and mode choice. Portland’s light rail system by nearly four-fold—from 15 to 58 miles. Vancouver That string of successes suffered a MAX Light Rail setback in February 1995 when North/ Clark County, Washington voters South MAX rejected funding their piece of the 4 Hillsboro Westside MAX South/North line. Local official Portland 10 have two years to assess whether to Eastside MAX 7 Gresham proceed with an Oregon-only Beaverton project or for Washington State to fund its share. Milwaukie Clackamas

2 Planning & Engineering Underway Oregon City

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 23 What Kind he expectations for MAX and designed to survive the analysis. The Tland use have risen to new best elements of each concept were of Future heights with Metro’s Region 2040 crafted into a recommended alterna- project—the region’s long range tive and adopted in December 1994. Do We Want? transportation and land use plan. With that decision in place, a legally Region 2040 asks the questions: enforceable 20 years Regional Plan is How do we want to grow in the scheduled to be developed and next 20 years, what do we want to adopted in the fall of 1996. the region to look like and how will we get there? The three growth concepts analyzed were: Region 2040 has two fundamental Concept A: Continue outward differences from traditional with current trends, allowing the regional planning exercises: region to grow out by expanding • First, the Region 2040 project is the Urban Growth Boundary; testing both alternative land use A Concept B: Freeze the region’s and transportation futures. Urban Growth Boundary and • Second, the legal authority and substantially increase density in political will to move ahead with transit corridors; and early implementation of the Concept C: Decant some growth regional plan is in place. to satellite cities; focus density in centers. B Crash-test Dummies In 1990, Portland’s voters gave Building Blocks for Metro the legal authority to require the Future local governments to change their The 2040 Recommended plans and zoning codes to be consis- Alternative adopted by Metro tent with Metro’s adopted regional builds on the region’s past suc- framework plans. The lengthy cesses by focusing on transit and a process of changing plans and tight Urban Growth Boundary as a funding priorities to use transporta- means to grow and preserve our C tion investments explicitly as a tool to livability. The building blocks are: help leverage the land use future the region envisions is now underway. • Maintaining a tight Urban Over the last four years Metro, Growth Boundary. The plan Metro’s 2040 process is the Tri-Met, and local governments forecasts a 40% increase in popula- forum for developing a developed and evaluated three basic tion by 2017 and the need for zero consensus on a vision for alternative growth concepts. The expansion of the urban area. Seattle, how the region idea was to frame a range of reason- for example, saw a 38% increase in wants to grow. able choices. Like with crash-test population and expanded their dummies, the concepts were not urbanized area 87% in 20 years;

24 Beyond the Field of Dreams: Light Rail & Growth Management in Portland • Focusing Growth on Transit. • Developing a system of • Expanding MAX and the bus Two-thirds of the jobs and 40% of urban greenspaces for active system. The 2040 plan calls for a households would be in existing use and nature. The region’s three-fold increase in the level centers and along corridors served voters approved a $135 million transit service. Transit becomes a by buses and light rail; Greenspaces bond measure over- primary means to accommodate • Preserving residential whelmingly to move increases in regional travel and neighborhoods as the dominant greenspace preservation reduce reliance on the from theory to prac- automobile. For land use. To accommodate tice. The plan calls example, in increased densities, inner neighbor- for about 34,000 regional hoods would have smaller lot sizes acres in open space centers the — 70% of existing neighborhoods or about 14% of mode share of would be left as they are. The the land in the work trips on average new single family lot size Urban Growth transit would grow would drop to 6,200 from about Boundary; from about 8,500 square feet today; 6% today to 25%. The 2040 Recommended Alternative adopted by Metro builds on the region’s past successes by focusing on transit and a tight Urban Growth Boundary as a means to grow and preserve our livability.

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 25 Regional Planning • Change local plans to increase A Tale of Two Cities With Real Teeth permitted densities to assure sufficient capacity to be consistent Local governments have con- Population Growth with the 2040 growth concept; spired with each other to raise the New Urban Land Developed standard for regional planning to • Adopt minimum residential 100% new unprecedented heights. To densities — providing for no less 87% accelerate implementation of the than 80% of the permitted 80% Region 2040 Growth Concept and density; help maintain a tight urban growth 60% • Change local codes to provide for boundary local governments came reductions in parking minimums 40% 40% 38% to Metro and asked them to prepare and maximums consistent with Percentage Increase Percentage an early implementation strategy regional standards to encourage 20% which would be binding on local more efficient use of land; 0% governments. The “Urban Growth 0% • Manage the location of new “big Seattle Portland Management Functional Plan” was 1970-1990 1996-2017 unanimously approved in July 1996 box” retail, so that investment by the Metro Policy Advisory and reinvestment in retail Region 2040 envisions a 40% Committee of local officials repre- commercial in existing centers increase in population and just senting 89% of the region’s popula- are maintained and transporta- a zero % increase in land area tion. The plan embraces the so tion impacts are minimized; and, by 2017. The Seattle experience called “Zero Option,” no expansion • Raise levels of acceptable conges- is more typical—land consumed of the UGB. tion on the road system in high at more than double the rate According to Metro Executive density areas with good transit of population growth. Mike Burton “Prior to this pro- and / or pedestrian networks. posed functional plan, Metro and its partners had agreed in principle Boiling Frogs to the ideas contained within the Metro has the legal power to growth concept. The functional require local governments to plan puts those ideas into law and comply with the regional plan. makes concrete, specific changes in Having the authority is not the how the region manages its growth. same thing as having the political Never before in the country has clout to make it happen. Moving that occurred, much less with this the Region 2040 Plan off the level of cooperation and spirit of drawing boards and onto the regionalism.” Among other things ground will be a bit like the story the legally binding plan to be of how to boil frogs. If you dump administered by Metro gives local the frogs into a pot of boiling governments 24 months to: water, they will jump out. On the other hand, if you bring up the • Accept regional 20 year growth temperature slowly to a boil the targets for residential and frogs stay in the pot. The same will employment;

26 Beyond the Field of Dreams: Light Rail & Growth Management in Portland be true for implementing Region New Signals to 2040. If Metro attempts to turn up the Real Estate Less Means More the temperature beyond what the Marketplace local governments feel comfortable with they will jump out of the pot. The “Zero Option” appears to Ultimately, implementation of the be both politically popular and in 2040 plan is going to be at a pace line with emerging market trends. dictated by Metro’s local govern- According to a recent poll by ment partners. Portland General Electric 56% of the region’s voters support the More Riders with option to “keep the Urban Growth Less Service Boundary as it is, and build residences on smaller lot sizes, even if The 2040 analysis powerfully that means increased density and illustrates the payoffs of balancing people living closer together in transportation and land use. With smaller homes.” the Recommended Alternative, less Holding the UGB in place turned out to be more. Compared seems to be causing Portland’s to current trends (Concept A), the regional real estate market to Recommended Alternative has: preform differently than other • 53% more transit riders with western cities. For the first time 3% fewer service hours; and since the UGB was adopted in • 33% fewer congested road miles 1979 Portland is experiencing a on a road network which has 5% tight residential and commercial fewer lane miles. land market. Residential and retail developers don’t have an endless The results of the modeling are supply of vacant sites further out particularly revealing for MAX. along the edge to move to. While each of the concepts has essentially the same levels of transit In response to a tightening land Balancing transportation service, ridership varied tremen- supply and shifting demographics and land use is a cheaper dously between alternatives. For Portland’s land market is now and better way to grow. the Westside, daily ridership increasingly behaving in ways Compared to the current ranged from 31,800 in the sprawl- supportive of the higher density trend, the recommended ing base case to 81,300 in the compact development patterns alternative had more transit compact Concept B—a difference envisioned in the Region 2040 ridership with less service of over 250%. Growth Concept. hours and less congestion In the altered reality of regional For example: with fewer lane miles. planning models, the 2040 Recom- • Since 1990 the market share mended Alternative shows that it’s of small lot single family has both cheaper and better to grow increased threefold from right. The bigger question is, “Is this 19% to 54%; a future anyone wants to live in?”

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 27 • The average lot size for new single Swimming Against family residences has dropped the Tide from 13,800 square feet in the Region 2040 assumes a big 1980s to close to 6,200 today; change in land use plans and a • Townhouses have gone from a continued shift in growth trends in market share of virtually nothing order to assure regional mobility before 1990 to 12% of the and livability. That vision is a residential market; popular one with our region’s • Last year redevelopment and citizens and governments. Making infill accounted for 24% of all it happen will be a tall order. new residential and 35% of While future national demographic new employment; and, trends and local market behavior give some credence to the strategy, • Retail is moving to infill national trends seem to be moving sites from greenfield sites. in the opposite direction: Walgreens’ move into the Portland market is illustrative. • Containment of growth vs. To establish a market presence dispersal outward Walgreens needed five sites. • Redevelopment and infill With little vacant land available vs. growth primarily on they are coming to Portland via greenfield sites redevelopment and infill. • Growing downtowns and urban centers vs. edge cities and declining cores • Increased use of transit and walking vs. increased use of cars and congestion

Perhaps planners in Portland are really a bit like the endangered salmon swimming upstream against the current of the Columbia River. Like the salmon, we’ve been successful in the past swimming against the current. So far, Portland’s planners, unlike the salmon, have flourished and have stayed off the endangered species list.

28 Beyond the Field of Dreams: Light Rail & Growth Management in Portland he Portland story is more fourfold increase in the size of the Past Tabout community building system. That expanded MAX than MAX building. MAX has system has been embraced as the Success: been a vehicle to move people, cornerstone of the region’s strategy shape the region, defer highway to create the kind of compact A Prologue investments, and to enhance our livable future we want. Getting quality of life. So far, over $1.3 there won’t be easy. To paraphrase for the billion in new development has Yogi Bera, we need to “avoid occurred along the line. making the wrong mistake.” Future MAX is not a silver bullet; The challenge we now face is to having it won’t make your main apply the successes of downtown street Disneyland. MAX, in Portland, Gresham and MAX to combination with supportive land the rest of our regional commu- use planning, has enjoyed great nity. We are—after all—one support in Portland because they region, one marketplace, are not ends in themselves. They one air shed. If one part are the tools our community of the region fails, we leaders have used to build a more all fail. Nothing less livable community. than our livability We’ve found the marriage is at stake. between growth management and MAX is not just good policy, it’s good politics. As Portland looks to the future and the pressures of 645,000 new residents, MAX is being asked to play an even bigger role. With two funding measures, — Transit Connections Portland’s voters approved nearly a

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 29 Appendix I Retail/Commercial: $59 million Gold’s Gym, Holiday Inn, Development 4121 NE Halsey Portland/Downtown Adjacent to MAX: $500,000 renovation of former NE Holladay & Grand Avenue store completed in 1986 $400,000 renovation of old A Partial Inventory $150,000 renovation, 1993 Cosmopolitan Hotel, 1991

Commercial Tenant, Tri-Met Parking Garage 1021 NE 1st 4-story, 550 spaces $565,000, 1990 $5.3 million, 1995

Front and Davis parking garage/heliport, 234 NW First $8.8 million parking garage and heliport with 400 short-term parking spaces

Lloyd Center Red Lion Inn, 1000 NE Multnomah $35 million remodeling and addition of 530 rooms 382,000 Sq. ft. Completed in 1981 $3 million renovation, 1992

Moyer Theater, 16th and Multnomah $3 million 10-screen theater, opened 1986

Pacific Crest Rehabilitation Center, 405 NE 5th $448,500 remodel of clinic 37,000 Sq. ft.

Pony Soldier Motel, 1060 NE Cleveland $1.5 million motel 34,120 Sq. ft.

30 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Multi-Family Residential: $63.5 million—1,736 units

4636 NE Hancock Rockwood Station Apartments, $226,000, 8 units, 1991 19100 E Burnside $5.7 million, 195-unit apartment complex Rockwood Crossing, 19200 E Burnside 177,000 Sq. ft. multifamily residential $719,000, Four quadriplexes (16 units) Rosewood Terrace Apartments, 16,720 Sq. ft. 19316 E Burnside $260,000, 16-unit apartment complex 160th Avenue Apartments, 310 SE 160th 7,880 Sq. ft. $275,000, 11-unit apartment complex St. Vincent de Paul Villa, 6,800 Sq. ft. 16060 E Burnside $1.2 million, 30-unit fully accessible Glen Fair Park Apartments, 143rd and E Burnside handicapped housing 36,000 Sq. ft. 24 units, 1995 multi-family residential

McMullen Terrace Apartments, 14302-38 E Burnside Try-MAX Apartments, 165th & E Burnside $1.16 million, $1.3 million, 44 units, 1992 30-unit townhouse development 35,500 Sq. ft. Rockwood Park Apartments, 17375 NE Couch Burnside Fir Apartments, 17440 E Burnside $1.8 million, 70-unit apartment complex $905,000, 24 units, 1993 46,000 Sq. ft. multifamily residential Bay Club Apartments, 18837 SE Yamhill Mayfield Court Apartments, $1.02 million, 58 units, 1991 17654 SE Pine $1.11 million, 30 units, 1991 Apartments, 18200 SE Pine $770,000, 13 units, 1994

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 31 Windsor Court Apartments, Stark Street Station Apartments 15809-39 E Burnside 611 SE 190th $1.3 million, $1 million, 24 units, 1995 46-unit apartment complex 104,000 Sq. ft. multifamily Senior apartments, 1545 SE 223rd Windsor Court Townhouses, $4 million, 82 units, 1995 15811 E Burnside $1.2 million, Trails End (multifamily housing) 30-unit townhouse development 1209 NE Linden 35,500 Sq. ft. $1.7 million, 44 units, 1994

Bristol Woods Apartments, 1301 NE 8th Gresham Central Apartments, 800 NE Roberts $2.74 million, 120 units, 1993 $4.4 million, 97 units, 1995

Eastman Heights Apartments, 301 NW Eastman Oneota Townhomes, 200-290 NE 5th, $569,000 (partial), 76 units, 1990 205-295 NE 4th $1.5 million, 20 units, 1995 Towne Fair Apartments, Division & Wallula Apartments, 1530 NE Cleveland $7.7 million, 263 units, 1990 $2.2 million, 45 units, 1995

Cleveland Townhouses, 4th and Cleveland Lloyd Place Apartments, 1411 NE 16th 12+ units, 1995 $12 million, 200 units, 1996

Apartments, 4614 NE Hancock Duplexes- $325,000, 9 units, 1991 17524, 18188–18410 SE Pine, 4604 NE Hancock, 506 NE 94th, Burnside Station Apartments, 21 NE 108th, 508 NE 113th, 18200 NE Couch 83 NE 162nd, 17312 E Burnside, $1.7 million, 37 units, 1995 25 NE 179th, 18146–18250 SE Ash, 18233 SE Oak, 1427 SE 182nd, 908 NE 183rd, 700 N Main, addition to group home 1926 NE 11th, 1625 SE 4th, $400,000, 4500 Sq. ft., 1995 272 NE 12th, 438 NE 2nd 62 units total $4.8 million, 1995-1996

32 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Office: $288 million

American Bank Building, Gresham Corporate 621 SW Morrison Center Phase I, $3.75 million rehabilitation 300-900 NW Eastman Pkwy. completed in 1986 $1.3 million office building 164,000 Sq. ft. office 35,908 Sq. ft. office

Bank of America Center, Kaiser Permanente Rockwood First and Morrison Medical Offices $42 million office building 19500 SE Stark, $4.6 million 350,000 Sq. ft. office clinic completed in 1985

Dayton Building, 838 SW First Liberty Centre, $3.3 million rehabilitation Seventh and Holladay completed in 1983 $40 million office building 31,800 Sq. ft. office 350,000 Sq. ft., 1996

Dental Office, 17326 SE Stark Lloyd Center Tower, $164,000, 2320 Sq. ft., 1996 825 NE Multnomah $33 million office building, opened 1981 Federal Office Building East, 400,000 Sq. ft. office 905 NE 11th $55 million office building completed 1987 Port of Portland Building, 545,000 Sq. ft. office 700 NE Multnomah $343,000 renovation Gresham Professional Group, 501 NE Hood 500 Lloyd Building, office improvements, 500 NE Multnomah no new square footage $2.172 million renovation $92,000, 1995 McKeel Office Building, Guide Dogs for the Blind, 701-703 NE Hood 100 NE 4th $63,750 remodel 2300 Sq. ft. office, 2,092 Sq. ft. 2100 Sq. ft. residence $376,000, 1995 Sisters of Providence Medical Offices, 99th and NE Pacific Robert Duncan Plaza, SW 1st & Oak $2.5 million medical office $14.5 million Federal Office Building building, 1994 326,000 Sq. ft. completed 1991 26,000 Sq. ft.

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 33 Medical offices, Pacific First Federal, 811 SW 6th 10136 SE Ankeny $22 million renovation and new $419,000 office building construction opened in 1980 9,600 Sq. ft. 317,000 Sq. ft. office

Medical offices, 223 NE 102nd Paulson Capital Building $1.5 million office building $6.3 million office building 15,500 Sq. ft. completed in 1984 60,000 Sq. ft. office Medical Offices, 2150 NE Division Portland Power & Light, $1 million, 12,552 Sq. ft., 1995 9951 SE Ankeny $2.2 million office building Morton Cole & Weber Building, 26,000 Sq. ft. 55 SW Yamhill $2.2 million rehabilitation Providence Medical Office completed in 1984 Building, 440 NW Division 20,500 Sq. ft. office $342,000 medical offices and clinic Office complex, 147 SE 2nd 10,300 Sq. ft. $275,000, 4800 Sq. ft., 1994 State Office Building, Office complex, 320 SW 2nd 808 NE Oregon $400,000, 1990 $11.5 million office building 264,000 Sq. ft. office

Office complex, 9810 E Burnside Three Pacific Square, 123 NW Flanders $567,000 office complex $78,000 rehabilitation, 1993 $1.4 million rehabilitation, 28,000 Sq. ft. completed 1984 100,000 Sq. ft. office

One Oak Plaza, 333 SW 1st Transamerica Title Insurance $11.4 million office building Co. main offices 370,000 Sq. ft. 12360 E Burnside $1 million office building con- One Pacific Square, structed in 1980 220 NW Second 17,000 Sq. ft. $22 million office building completed 1983 205 NE 181st 293,000 Sq. ft. office $86,000 office building, 1992 2000 Sq. ft.

34 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Office/Retail: $427 million

200 Yamhill Building, Lloyd Center Mall 204-218 SW Yamhill $200 million renovation $4.2 million renovation and expansion completed in 1986 1.5 million Sq. ft. retail, 48,000 Sq. ft. retail and office office, and restaurant

Blagen Block, 78 NW Couch New Market Theater and Village, $2 million renovation 50 SW Second completed in 1981 $10 million renovation of three 25,000 Sq. ft. office, buildings opened in 1983 8,000 Sq. ft. retail 85,000 Sq. ft. office, 40,000 Sq. ft. retail Centennial Block, 210 SW Morrison Pine Street Building, 50 SW Pine $4 million renovation Built in 1981 completed in 1985 7,500 Sq. ft. office, $2 million renovation 2,500 Sq. ft. retail completed in 1994 12,000 Sq. ft. retail, Pioneer Place 32,000 Sq. ft. office (Morrison Street Project) $180 million 3 block office Directors Furniture Building, and retail complex 804 SW Third Constructed in 1988 $5.6 million renovation 970,000 Sq. ft. 90,000 Sq. ft. office and retail Skidmore Fountain Building Fleishner Block, 107 NW Couch (formerly Packer Scott), $2.5 million renovation 28 SW First began in 1986 $4.5 million renovation 50,000 Sq. ft. of retail and office opened with light rail in 1986 20,000 Sq. ft. retail, 21,000 Sq. ft. office Kress Building, 622 SW Fifth $3 million renovation completed in 1986 Thomas Mann Building, 70,000 Sq. ft. retail and office 140 SW Yamhill $2.2 million renovation and addition in 1981 Lawrence Building, 306 SW First 18,000 Sq. ft. of retail, $4.3 million renovation office and residential completed in 1986 50,000 Sq. ft. retail and office

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 35 Willamette Block, Lombard Building, 220 SW First 722-738 SW Second $625,000 rehabilitation $4 million renovation and 7,500 Sq. ft. retail addition of 4th floor in 1983 24,000 Sq. ft., office, Nordstrom, 701 SW Broadway 8,000 Sq. f. retail $8 million remodeling and Retail: $81 million addition of a penthouse, 1989 110,000 Sq. ft. retail Caplan’s Sporting Goods, 625 SW Fourth Plaza 181, 181st and E Burnside $500,000 renovation in 1986 23,000 Sq. ft. retail Strip commercial, 6 stores, completed in 1986 $110,000 Pizza Hut added in 1989 Gateway Fred Meyer Shopping Center $27 million for redevelopment Retail tenant, 40 NE Burnside and expansion, completed 1987 $897,000, 43,000 Sq. ft., 1991 370,000 Sq. ft. retail Rockwood Fred Meyer, Gateway Mervyn’s, 18330 SE Stark 10010 NE Halsey $400,000 remodel $2.6 million retail store 55,000 Sq. ft. retail 75,000 Sq. ft. Yamhill Marketplace, Gateway Retail Complex 110 SW Yamhill $770,000 retail complex $7 million retail space 30,000 Sq. ft. opened in 1982 77,000 Sq. ft. of retail

Gresham Town Faire Zell Bros. Jewelers, $30.5 million community shop- 800 SW Morrison ping center completed in 1987 $1 million renovation, 1986 276,000 Sq. ft. retail 14,760 Sq. ft.

Interior remodel, 1411 NE 181st MAX Convenience Store, $97,000, 3859 Sq. ft., 1996 122nd and E Burnside $60,000 Interior remodel, 290 NE Roberts $110,000, 1996

Interior improvements, 40 NE 2nd $75,000, 1996

36 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Public Use: $360 million

Ankeny Park, First and Ash Gresham City Hall Annex Refurbished in 1986 $6.395 million, 1996 $300,000 “Old City Hall” building, Weil Pedestrian Arcade Gresham, remodel Connection from MAX to $967,000, 1996 downtown Gresham $75,000 Gresham Civic $3.5 million, 1996 Oregon Convention Center, NE MLK Blvd and Holladay $85 million convention center, construction in 1990 500,000 Sq. ft.

Pioneer Courthouse Square $8 million one block public square opened in 1984 68,000 Sq. ft. plaza and retail

Rose Garden 20,340 seat arena and entertainment complex 730,000 Sq. ft. $262 million, opened in 1995

Holladay Corridor Improvements Sidewalk treatment, landscaping, light rail station $22 million, 1989

Gresham Regional Library $1.1 million, 1989

Easthill Church Addition $782,000, 1995

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 37 Appendix II Attachment 10 SPECIAL CONDITIONS: Full Funding LAND USE AND TRANSPORTATION PLANNING Grant Agreement The Government and the Grantee recognize that the success of the Hillsboro Extension to extension of the Westside Light Rail Project to Hillsboro (hereafter, the the Westside Project “Hillsboro extension”) will depend, in large measure, on local implementation and enforcement of long-term urban containment policies that lead to Between FTA and Tri-Met transit-supportive land use patterns in the Westside-Hillsboro corridor.

January 4, 1995 Accordingly:

1. The Grantee acknowledges that the Government’s provision of Federal financial assistance to the Hillsboro extension is specifically conditioned upon the enactment of the current version of the Region 2040 Concept Plan by the Metropolitan Service District (Metro”), the cognizant Metro- politan Planning Organization for the Portland, Oregon metropolitan area.

2. The Grantee agrees and promises to take any and all actions, within its powers, as may be reasonable and necessary to ensure local adoption of the detailed Region 2040 Framework Plan (the “Framework Plan”); to ensure that all cognizant local governments in the vicinity of the Hillsboro extension continue to comply with the Framework Plan; and to ensure that the Framework Plan is maintained, without any substantial changes in transit station areas that would adversely affect transit ridership, for a period of no less than five years following completion of the Hillsboro extension, now estimated for September 1988.

3. The Grantee agrees and promises to take any and all actions, within its powers, as may be reasonable and necessary to ensure local adoption of amendments to the comprehensive plans and implementing ordinances of all cognizant jurisdictions in the vicinity of the Hillsboro extension that are consistent with the Framework Plan and Oregon law.

4. The Grantee agrees and promises to take any and all actions, within its powers, as may be reasonable and necessary to ensure local adoption of policies that are consistent with the State Transportation Planning Rule, as currently enacted (the Planning Rule), and specifically, the provisions of the Planning Rule that are intended to limit growth in per capita Vehicle Miles of Travel.

38 Beyond the Field of Dreams: Light Rail & Growth Management in Portland American Architectural Foundation, Back From the Brink: Saving America’s Cities by Design, An Accent on Architecture Television Production, 1995. References Arrington, G. B., Portland’s Light Rail: A Shared Vision for Transportation and Land Use, Tri-Met, Portland, Oregon, May 1992. Barney & Worth, Inc., Evaluation of Banfield Light Rail Transit Station Area Planning Program, Portland, Oregon, July 1993. Burton, Mike, Letter to Neil Goldschmidt, Calthorpe Associates, Region 2040, Prepared for Metro, San Francisco, California, May 1994. City of Hillsboro, The Downtown Area Station Community Planning Process, Opportunities, and Development Alternatives, Hillsboro, Oregon, January 1995. Dunphy, Bob, Urban Land “Transportation-Oriented Development: Making a Difference?”, July 1995. ECO Northwest, Interim Land-Use Policies for Westside LRT, Technical Memorandum #1, Eugene, Oregon, July 1991. Economic Research Associates, Development Potential by Station (Paper Five), Banfield Transit Station Planning Program, San Francisco, California, April 1981. Federal Transit Administration, Revised Measures for Assessing Major Investments: A Discussion Draft, Washington, D. C., September 1994. Federal Transit Administration, Westside Full Funding Grant Agreement Hillsboro Extension Amendment, Washington, D. C., January 1995. Fletcher Farr Ayotte PC, Hillsboro Light Rail Extension, Station Siting Advisory Committee Report, Station Location Recommendations, Portland, Oregon, November 1993. Fletcher Farr Ayotte PC, Murray West Preliminary Master Plan Volume 3, Portland, Oregon, October 1994. Gibson, Dale, “Portland a Model for What Regional Governments Can Accomplish”, Triangle Business Journal reprinted in The Business Journal, Portland, Oregon, May 27, 1994. Kunstler, James, The Geography of Nowhere, New York, Simon & Schuster, 1993. Kandall, Paul, Newsweek, “Plan for Mass Transit”, New York, New York, May 15, 1995. Leland Consulting Group, Multi-Family Analysis, City of Gresham Civic Neighborhood Transit Centered Development, Undated. McCloud, John, “In Portland, Oregon, Rivals Prosper in Unity”, New York Times, New York, New York, August 25, 1991. Metro, Concepts for Growth Report to Council, Portland, Oregon, June 1994. Metro, Metro 2040 Growth Concept, Portland, Oregon, December 1994. Metro, Urban Growth Report Discussion Draft, March 1996.

Beyond the Field of Dreams: Light Rail & Growth Management in Portland 39 Metro, Urban Growth Management Plan: MPAC Approved Draft, Portland, Oregon, July 1996. Middleton, William, Transit Connections, “Land Use and Transportation Planning, Portland Style”, September 1995. Oregon Department of Land Conservation and Development, Transportation Planning Rule, OAR Chapter 660, Division 12, Salem, Oregon, May 1991. Ortega, Bob, Wall Street Journal, “Urban Mecca. Portland Ore., Shows Nation’s City Planners How to Guide Growth”. December 26, 1995. Pierce, Neil, speech to the Congress for New Urbanism, San Francisco, California, February 1995. Porter, Douglas L., Urban Land, “A 50 Year Plan For Metropolitan Portland”, July 1995. Portland General Electric, Survey On Growth & The Economy, Portland, Oregon, March 1996. Portland Planning Bureau, Final Recommended Plans, Policies and Program: Banfield Light Rail Station Area Planning Program, Portland, Oregon, May 1982. Portland Bureau of Planning, Goose Hollow Community Station Area Planning Background Report and Alternative Development/Design Concepts, City of Portland, Portland, Oregon, December 1994. Portland Bureau of Planning, Recommended Central City Plan, Portland, Oregon, January 1988. Portland Office of Transportation, Central City Transportation Management Plan Proposed Draft, Portland, Oregon, September 1994. Region West Consultants, The Portland Business Experience: The Benefits and Impacts of Being Located Near the MAX Light Rail, Portland, Oregon, June 1988. Stachon, Eric, On the Right Track, Video, Produced by the Policy Initiative Group, Distributed by the Federal Transit Administration, Portland, Oregon, 1995. Tri-Met, Attitude ad Awareness Study Summary of Findings, Portland, Oregon, December 1994. Tri-Met, More Than a Transit System, Portland, Oregon, 1984. Tri-Met, Planning and Design for Transit, Portland, Oregon, March 1993. Tri-Met, Strategic Plan 1993-1998, Portland, Oregon, August 1993. Washington County, Rail Trail Guide, Building 21st Century Communities, Hillsboro, Oregon, May 1994. Washington County, Department of Land Use and Transportation, Ordinance 418, Interim Light Rail Station Area Planning, Hillsboro, Oregon, July 1993. Zimmer, Gunsul, Frasca Partnership, Urban Design Analysis, Banfield Transit Station Planning Program, Portland, Oregon, October 1981.

40 Beyond the Field of Dreams: Light Rail & Growth Management in Portland Beyond the Field of Dreams: Light Rail & Growth Management in Portland 41 How We Get There Matters.

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