A JOINT PROJECT OF THE PORTLAND DEVELOPMENT COMMISSION AND THE PORTLAND BUREAU OF PLANNING

ANKENY/BURNSIDE DEVELOPMENT FRAMEWORK

PREPARED BY MOORE IACOFANO GOLTSMAN, INC.

HOTSON BAKKER BONIFACE HADEN ARCHITECTS

NELSON\NYGAARD CONSULTING ASSOCIATES

ECONOMIC & PLANNING SYSTEMS

HERITAGE RESEARCH ASSOCIATES, INC.

JOHNSON GARDNER, LLC ACKNOWLEDGEMENTS

THIS PROJECT WAS SPONSORED BY THE PORTLAND DEVELOPMENT COMMISSION and co-managed with the Portland Bureau of Planning. The study was conducted under the guidance of a Stakeholder Advisory Group (SAG) and a Technical Advisory Group (TAG).

Portland Development Commission: Larry Norton, Old Town/Chinatown resident Liza Mickle, Bureau of Planning Bruce Warner, Executive Director Jan Oliver, University of Oregon Jennifer Nolfi, Portland Development Cheryl Twete, Director of Development Chet Orloff, Portland Parks Board Commission Amy Miller-Dowell Ron Paul, Portland Public Market Ross Plambeck, Portland Development Lewis Bowers John Plew, Foresight Development/Concept Commission Peter Englander Real Estate Rich Rodgers, City of Portland Ross Plambeck Carly Riter, Portland Business Alliance John Warner, Portland Development Sarah Harpole Major Bob Rudd, Salvation Army Commission Joanne Daunt Major Gary Kyle, Salvation Army David Yamashita, Portland Parks & Recreation Kim Tran Scott Milam, Salvation Army CJ Gabbe John Russell, Property Owner/Developer Consultant Team: Kevin Brake Paul Verhoeven, Portland Saturday Market Moore Iacofano Goltsman, Inc. Terry Warpinski, University of Oregon Brian Douglas Scott Portland Bureau of Planning: David Yamashita, Portland Parks & Recreation Mukul Malhotra Karl Lisle Jay Renkens Joe Zehnder Technical Advisory Group: Maty Sauter Arun Jain Janet Bebb, Portland Parks and Recreation Travis Scrivner Nicholas Starin April Bertelsen, Portland Office of Meredith Norwich Transportation Aaron Abrams Stakeholder Advisory Group: Robert Hastings, Tri-Met Heather Kaplinger John Beardsley, Property Owner/Developer Diana Hinton, Bureau of Environmental Lynn Weigand Kathy Cooke, Mercy Corps Services Anchi Mei Harriet Cormack, Waterfront Park Advisor/ Bill Hoffman, Portland Office of Robert Litt Citizen Transportation Teal Davison, Portland Business Alliance Steve Iwata, Portland Office of Transportation Hotson Bakker Boniface Haden, Art DeMuro, Historic Landmarks Jeff Joslin, Bureau of Development Services Architects + Urbanistes Commission/Developer John Klum, Portland Fire & Rescue Norm Hotson Louis Elliott, Bill Naito Company Pam Krecklow, Multnomah County Alan Boniface Greg Goodman, Property Owner/Developer Heather Lyons, Bureau of Housing & Won Kang Richard Harris, Old Town Visions Committee Community Development Vance Harris William Hawkins III, Architect/Historian Doug McCollum, Portland Office of Gianna Lupo, Little Italy Transportation

ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK | ACKNOWLEDGEMENTS

Nelson\Nygaard Consulting Associates Greg and Jay Cervetto, Greyrose Marketing Bill Hoffman, Portland Offi ce of Tom Brennan Group Transportation Jane Jarrett, Architectural Foundation of Janet Bebb, Portland Parks and Recreation Economic and Planning Systems Oregon Pam Krecklow, Multnomah County Jason Moody Ron Paul, Portland Public Market Jennifer Nolfi , Portland Development Paul Shabsis Marcus Simantel, Agri-Business Council of Commission Oregon Jeff Joslin, Bureau of Development Services Johnson Gardner Philip Kalberer, Kalberer Company Dave Nunamaker, Bureau Jerry Johnson Tom Gilpatrick, PSU Food Ins of Environmental Services Chip Lazenby, Bullivant Houser Bailey Sarah Harpole, Portland Development Heritage Research Associates Lynn Youngbar, Portland Farmers Market Commission Kathryn Toepel Paul Verhoeven, Portland Saturday Market Karl Lisle, Bureau of Planning Elizabeth Carter Dianne Stefani-Ruff, Portland Farmers Market David Yamashita, Portland Parks and Recreation Chet Orloff, Historian Architectural Cost Consultants Portland Fire Station #1 Design Advisory Jim Jerde Portland Saturday Market Permanent Committee Home Study Stakeholder Advisory Committee Three other studies ran concurrently Stakeholder Advisory Committee David August, Pearl District Neighborhood with the Ankeny Burnside Development Paul Verhoeven, Portland Saturday Market Association Framework. These studies addressed Adam Milne, Old Town Pizza Gregory Crawford, Pumpkin Ridge Associates specific projects or opportunities that Larry Norton, Old Town/Chinatown resident Barbara Sage, Wells, Fargo were strongly promoted and considered Robin Grimwade, Portland Parks and Bing Sheldon, SERA Architects for inclusion into the final results of this Recreation Paul Verhoeven, Portland Saturday Market study. Special acknowledgement is given Lou Elliott, Bill Naito Company Patrick Gortmaker, Kalberer Company, Old to the many hours invested by these Charles Houtchens, Portland Saturday Market Town Chinatown Visions Committee stakeholder and technical groups, as their Rhia Weinhaus, Portland Saturday Market Tom Carrollo, John Beardslesy Company, Old work added to the final outcomes of this Diane Tweten, Portland Saturday Market Town Chinatown Neighborhood Association report. Ann Madland, Portland Saturday Market Anne Naito Campbell, Bill Naito Company Patrick Gortmaker, OTCT Visions Portland Public Market Feasibility Study Allyson Reed, Pioneer Place Technical Advisory Committee and Business Plan Teal Davison, Portland Business Alliance Connie Johnson, Bureau of General Services Randy Capron, Voleur Restaurant John Klum, Portland Fire & Rescue Stakeholder Advisory Group Captain Terry Munro, Portland Fire & Rescue Amelia Hard, Share Our Strength Hunger Technical Advisory Committee Glen Eisner, Portland Fire & Rescue Relief Lewis Bowers, Portland Development Mike Speck, Portland Fire & Rescue Barbara Slaughter, Portland Farmers Market Commission Amy Miller-Dowell, Portland Development Dalton Hobbs, Oregon Department of Michael O’Connell, Portland Development Commission Agriculture, Development and Marketing Commission Division Ross Plambeck, Portland Development Deborah Kane, The Head Table; Food & Farm Commission (Ecotrust) Joe Zehnder, Bureau of Planning

| ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK EXECUTIVE SUMMARY

EXECUTIVE SUMMARY

THE ANKENY/BURNSIDE DEVELOPMENT FRAMEWORK is a joint Portland Development Commission and Bureau of Planning project intended to define a development strategy and urban design vision for underutilized properties and public spaces in the vicinity of Ankeny Plaza, including the area under the Burnside Bridge. Despite its wealth of assets, the Skidmore/Old Town Historic District has failed to fulfill its potential, even though other Portland Central City districts have thrived.

This report establishes development and urban design goals for future public and private investments in the District. Key development opportunity sites are identified, including those determined to have cata- lytic potential for the District and those that will serve to support catalytic development. Several pro- grammatic strategies, designed to encourage redevelopment success, are also outlined.

The fundamental vision for the area, refined through a multi-faceted visioning process, is to “create a vital and vibrant District that retains and reinforces the history and character of the Ankeny/Burnside area.” Key elements of this vision include activating the District, encouraging economic rebirth, and retaining existing character, uses and people.

To accomplish this vision, a multi-layered approach is proposed:

• Enhance the variety of primary land uses in the District so as to diversify its use patterns; • Retain and enhance the built form of the District though preservation, sympathetic new construction and improvements to the public realm; • Capitalize on existing strengths and redevelopment energy in the District by identifying and support- ing the development of catalytic opportunity sites; • Define how non-catalytic, but still significant, opportunity sites in the District can best be developed to support revitalization efforts; and • Develop programmatic strategies to reinforce and support revitalization efforts.

As limited public funds are available to initiate revitalization, and as a fundamental goal of this plan is to stimulate private investment through the selective and strategic use of public money, a strategy for the investment of public funds exists. The five priority implementation strategy action items are:

• Development of six catalytic opportunity sites; • Demonstration of support for Saturday Market; • Improvements to the public realm; • Revisions the existing regulatory framework; and • The identification of a management entity for the District.

The Skidmore/Old Town Historic District is the foundation of Portland’s soul and spirit. A new gener- ation of public and private leadership must capture the opportunity to build upon the District’s multicul- tural heritage and architectural legacy to ensure its unique attributes continue in perpetuity. The modern daily life of Skidmore/Old Town can and should thrive in an atmosphere of yesterday’s grace.

ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK | i TABLE OF CONTENTS

CHAPTER ONE, INTRODUCTION : 1 APPENDIX A: The District Today - 2 HISTORIC ANALYSIS OF ANKENY/BURNSIDE DISTRICT The Community Vision - 2 The Framework - 3 APPENDIX B: TRANSPORTATION & CIRCULATION ISSUES

CHAPTER TWO, EXISTING CONDITIONS ANALYSIS : 7 District Identity - 9 APPENDIX C:

Built Fabric - 13 DEVELOPMENT ECONOMICS Access - 17

Site Analysis Summary - 18 APPENDIX D:

Mix of Uses - 20 PLANNING & DEVELOPMENT CONTEXT Investment - 22

Planning Context - 24 APPENDIX E:

Summary - 27 REVITALIZING HISTORIC DISTRICTS: CASE STUDIES

CHAPTER THREE, DEVELOPMENT OBJECTIVES AND APPENDIX F:

EVALUATION FRAMEWORK : 29 DESIGN GUIDELINE RECOMMENDATIONS Community Vision - 30 Agency Goals - 30 APPENDIX G: Development Parameters - 31 PUBLIC REALM IMPLEMENTATION Site Objectives - 32 APPENDIX H:

CHAPTER FOUR, CONCEPT DEVELOPMENT : 37 ECONOMIC ANALYSIS OF KEY CATALYTIC OPPORTUNITY SITES Design Process - 38 Design Principles - 38 Concept Evaluation - 39 Charette Schematic - 40

CHAPTER FIVE, DEVELOPMENT FRAMEWORK : 43 Framework Elements - 44 Opportunity Sites - 49 Supporting Strategies - 51

CHAPTER SIX, PRIORITY IMPLEMENTATION STRATEGY : 63 Action Item Summary - 64 Catalytic Opportunity Sites - 66 Saturday Market - 72 Public Realm - 72 Regulatory Framework - 74 Management Entity - 75

ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK |

INTRODUCTION | chapter i

CHAPTER I INTRODUCTION

THE GUIDING VISION: TO REVITALIZE AN URBAN AREA IS TO GIVE NEW LIFE or vigor to a place that was once vibrant, enticing, and significant. Urban revitalization comes in many different CREATE A VITAL AND VIBRANT forms and can have varied levels of success. The most successful efforts – those DISTRICT THAT RETAINS AND that retain an area’s original character and charm while establishing new life and purpose – build upon existing strengths and capitalize on opportunities afforded REINFORCES THE HISTORY by the unique qualities that made a place great originally. This plan, the Ankeny/ AND CHARACTER OF THE Burnside Development Framework, outlines a blueprint for revitalization for the Skidmore/Old Town Historic District. ANKENY/BURNSIDE AREA

What is now called the Skidmore/Old Town Historic District was once the very heart and soul of Portland. The City grew up, in the form of plank roads and cast iron buildings, around the Skidmore Fountain. Once the commerce center of a burgeoning city, the area is rich with historic commercial and light industrial build- ings. Since the heyday of the Skidmore/Old Town era, Portland’s commercial center moved to other parts of the City and the Skidmore/Old Town area lost its initial purpose.

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The District Today the area have achieved varied levels Preservation policy efforts in 1975 of success, but none have been suc- and 1977 served to protect the historic cessful in reestablishing the vibrancy architecture and overall character of that the community envisions for the area, but a number of buildings Skidmore/Old Town. Through the were already lost to surface parking Ankeny/Burnside planning effort, the lots by that time. Some parking lots community expressed a vision for a currently serve as home to weekend vital and vibrant District that retains markets, which generate positive and reinforces the history and charac- activity on Saturdays and Sundays ter of the Ankeny/Burnside area. To for much of the year. However, the achieve this vision, the District needs abundance of asphalt lots has signifi- to be active 24 hours a day, seven days Skidmore Fountain marks the center of Portland’s birth. cantly compromised the character of a week, which will require a greater Skidmore/Old Town, and the contin- number and variety of users who ued parking operations preclude the choose to live, work, and play there. creation of more active and lively uses. The Community Vision Unlike other booming areas in The community vision for the area Portland, there has been limited hous- was developed with involvement from ing development in Skidmore/Old Portland citizens through advisory Town. The housing that exists is group meetings, charrettes, and other affordable, but a range of options opportunities over a fifteen month and prices is not available. Today, the planning process. The vision for the area has the highest concentration of District is summarized as follows: affordable housing and social services in the entire City. Skidmore/Old Town Historic District Ankeny Street between SW Second and Third will be a safe and active urban neigh- Avenues has a character all its own. Transportation improvements have borhood with a diversity and choice of occurred. Light rail trains began oper- housing, shopping, and services. The ation in 1986 and travel along First historic character will be bolstered by Avenue, but a perceived lack of safety adaptive reuse of historic buildings and cleanliness keeps many users from and complementary new construction. visiting the eclectic mix of small retail- New and improved public spaces will ers and office uses that have com- support markets and festivals, enhance mitted to turning the area around. the area’s historic character, and cre- Despite these challenges, Skidmore/ ate great places to gather and interact. Old Town is the preeminent nightlife The neighborhood will be anchored destination in the City with a large col- by office and institutional uses that lection of bars, nightclubs and other support and encourage the creativity, entertainment venues. entrepreneurship, and multi-cultural heritage that define the spirit of this Former Governor Tom McCall led the charge to Individual efforts toward revitalizing unique place and its people. replace Harbor Drive with Waterfront Park.

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The realization of the community’s multi-faceted, synergistic approach that The Primary Land Uses describe the vision for the Skidmore/Old Town will achieve the community vision. existing and future land uses most Historic District will only be achieved important for achieving the vision and through a series of progressive and The Framework goals for the Skidmore/Old Town well-defined strategies and initiatives The Ankeny/Burnside Development Historic District, including the cluster that build upon one another and set the Framework organizes and prioritizes of markets, with Saturday Market, a mix course for real and tangible change. A action categories into a four-tiered hier- of housing, restaurant/entertainment multi-layered and cohesive approach, archy: uses, community and social services, with programs, policies, and improve- small-scale retail, and office/institutional A. Primary Land Uses ments to support new development and uses. The Desired Built Form includes B. Desired Built Form rehabilitation of existing historic struc- adaptive reuse, pedestrian scale, com- C. Opportunity Sites tures, will be able to respond to fluc- patible infill, and a relationship to the D. Supporting Strategies. tuations in the market and ever-chang- modern city. This category includes ing interests of investors that result. the combination of public and private Each element of the hierarchy builds The Ankeny/Burnside Development buildings and open spaces that provide upon and supports all other tiers. Framework is designed to provide a the envelope for future development.

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Opportunity Sites, the third tier, have Ankeny, and Burnside is an ideal site the potential to contribute to the for a mixed use development with desired built form and set the ground- retail on the ground floor and social work for additional development services and workforce housing above. in the primary land use categories. Renovations to Fire Station #1 will Opportunity Sites are organized into provide opportunities to activate and three types: catalytic opportunity sites, improve the north and west edges of edge opportunity sites, and second- Block 34. Rehabilitation of the Smith ary opportunity sites. The Supporting Block building on Block 27 to the Strategies address six areas, and are south, bounded by Naito, First, Ash, designed to reinforce the primary land and Pine, will be a model for restora- uses, desired built form, and opportu- tion of historic structures. Light rail and cobbled streets contribute to the unique character of the District. nity sites. Edge opportunity sites are also iden- Opportunity sites tified, and are important because This plan identifies six catalytic oppor- these sites will create transitions to tunity sites, determined based on surrounding areas and may develop recent and planned improvements faster, providing income to fuel his- and other important neighborhood toric preservation efforts in the central initiatives so that each site builds District. The Plan also identifies a upon recent and current efforts and variety of secondary opportunity sites, is aligned with the primary land uses, which are other areas throughout the desired built form, and supporting District with redevelopment or preser- strategies of the Framework. The six vation potential. sites include Blocks 8, 9, 10, 11, 27 and 34. Supporting strategies The Blagen Block has benefited from ongoing reha- Public and private investment in the bilitation. On Block 9, the University of Oregon catalytic opportunity sites must be is rehabilitating and will consolidate its supported by improvements to the Portland operations in the three-quar- public realm. This plan specifies a ters of block bounded by Naito, First, number of improvements to the pub- Burnside, and Couch. Block 8, to the lic spaces and streetscapes within the north, originally slated for a new fire District. The improvements focus on station, is an ideal site for a mix of supporting development, enhancing retail, office, and workforce housing. the area’s historic character, and place- Block 10, to the south, bounded by making. Naito, First, Ankeny, and Burnside, will likely become the new interna- Specific improvements include pav- tional headquarters for Mercy Corps ing and streetscape improvements to with active uses on the ground floor Ankeny Street and First Avenue. The and offices above. Block 11, directly intersections of Ankeny Street with A key step in determining the future direction of west, bounded by First, Second, Second and Third Avenues should the District was to identify a new home for Saturday Market.

4 | ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK INTRODUCTION | chapter i

receive special attention to improve The existing guidelines should be gies. First of all, a management entity District identification, pedestrian improved to enhance usability, attain can assist in coordinating augmented crossings, and the east-west connec- the desired built form set forth in the clean and safe efforts for the area. A tion of the area with the waterfront Development Framework, and main- management entity can support trans- and the rest of downtown. The tain the historic character of the area. portation and parking management by Skidmore Fountain MAX light rail facilitating collaborative and creative station, beneath the Burnside Bridge, When updating the Central City Plan, parking strategies and promoting alter- should be activated with small-scale the City should explore transfer of native modes of transportation. The retail and improved with new lighting, development rights as a means to coordination role of a management surfaces, and access control. protect and enhance the character and entity should also include planning scale of the District. The City should and scheduling of events and imple- Ankeny Square and a new plaza space also consider increasing height and mentation of District marketing and in Tom McCall Waterfront Park will density allowances along the edges of branding efforts. support formal and informal interac- the District to encourage development tions and gatherings. Infrastructure on the many surface parking lots that Implementation improvements will support events, currently greet visitors to the area. Implementation of any single rec- such as markets and festivals, while The redevelopment of surface park- ommendation outlined in this Plan creating public spaces that are as great ing lots along the edges of the District will have a positive impact on the on Tuesday morning as on Saturday will mend the built fabric, contribute Skidmore/Old Town Historic District, afternoon. The creation of new park to the critical mass of residents neces- but true revitalization will require features will help to attract users to sary for revitalization, and provide a the dynamic, multi-faceted approach Waterfront Park and the Skidmore/ transition between the historic scale of mapped out by the Development Old Town Historic District. the District and the contemporary city Framework. The efficient and effec- that frames it. tive use of public and private resourc- New development and adaptive reuse es will restore a life, vigor, and pur- of historic structures in the District The Development Framework recom- pose to the area that will accomplish should be guided by a revised set mends the identification or creation the community’s vision and re-estab- of design guidelines, with improve- of a management entity to facilitate lish Skidmore/Old Town as the heart ment areas noted within this Plan. several of the Plan’s supporting strate- and soul of Portland.

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EXISTING CONDITIONS ANALYSIS | chapter ii

CHAPTER II EXISTING CONDITIONS ANALYSIS

IN THIS CHAPTER RELATIVELY FEW URBAN PLACES HAVE A SINGLE, DRIVING IDENTITY - a few of those rare settings include New Orleans’ French Quarter, San Francisco’s Chinatown, DISTRICT IDENTITY and Seattle’s Pike Place Market. All of these districts have a deep cultural heritage BUILT FABRIC that resonates in their architectural fabric. Ongoing, diverse, social activity perpet- uates the histories of these places, adding layers of meaning as each new generation ACCESS passes through.

SITE ANALYSIS SUMMARY While the Skidmore/Old Town Historic District is unified visually by its archi- MIX OF USES tectural fabric, it lacks the daily activity that can give visitors a strong sense of INVESTMENT place upon arrival. Strategic public and private investment is needed to encourage rehabilitation and new construction, diversify existing uses, and stimulate activity, PLANNING CONTEXT ensuring the longevity of the District’s unique attributes, heritage, and built fabric.

Existing conditions are detailed in this chapter, discerning what is most significant about the District’s past and current identities. The area’s built fabric is studied, along with its mix of uses. Recent investment, development economics and the District’s planning context are also assessed to determine the District’s most sig- nificant assets, issues, constraints, and opportunities.

ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK | 7 chapter ii | EXISTING CONDITIONS ANALYSIS

Skidmore Fountain (circa 1930). Photo courtesy of the Oregon Historical Society.

Old Town/Chinatown N Portland’s heritage is evident around every corner.

MAP 2.1: District context map

The District is rich with landmarks and community resources.

8 | ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK EXISTING CONDITIONS ANALYSIS | chapter ii

District Identity

The Development Framework study area has seen many uses since its inception in the mid-nineteenth cen- tury. All of these uses have shaped the District’s identity in some way. The most profound elements of the District’s identity today are described below.

Historical significance The Skidmore/Old Town Historic District was listed on the National Register of Historic Places in 1975. In 1977, the District gained National Historic Landmark status. By defini- tion, National Historic Landmarks are places that have historical significance at the national level, or are exceptional in their ability to represent histori- cal trends common to all Americans of a given era. Of the 2,500 Historic Landmarks in the United States, there are only 158 Landmark Districts.1

MAP 2.2: Portland Historic Landmarks and District contributing structures Landmark Districts typically gain des- ignation because of their architectural ing collection of mid- to late-nine- tributing” structures, meaning they character, past use, and association teenth century business buildings. The embody the distinguishing characteris- with significant historical events or District is an area of approximately tics of the Historic Landmark District patterns in American history. The sig- twenty blocks. The District is known via their design, materials, and/or con- nificance of the Skidmore/Old Town throughout the United States for its struction. Historic District is founded in the Italianate architecture. The wooden integrity of its commercial architecture cornices, masonry bearing walls, and A 2006 update to the 1977 Landmark and its links to Portland’s rise as a the use of architectural cast iron in the nomination, currently in progress, major West Coast trading center. street level facades once typified the may impact the categorization of sev- streets of Portland and are well repre- eral structures depending upon the The National Register nomination sented in the present Skidmore/Old application of evaluation criteria. This for the District reads as follows: Town Historic District.”2 could slightly alter the ratio of contrib- the “Skidmore/Old Town Historic uting to noncontributing structures in District was once the center of com- Of the 68 structures within the the District, but is not anticipated to merce and entertainment in Portland Skidmore/Old Town Historic District, impact it as a whole. and contains the city’s largest remain- 46 are currently considered “con-

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Social and cultural diversity than the City as a whole, however. Since its inception in the mid-nine- According to the 2000 Census, teenth century, Old Town has had approximately 30% of the study area many names, including North End, population was non-white while only Japantown, Burnside, Skid Row, and 22% of the entire Portland popula- Chinatown. While Portland’s popula- tion was non-white (see Figure 2.1). tion is relatively homogenous, Old Diversity in the area today is also Town has been home to a wide vari- highlighted by disparities in income. ety of occupational and racial/ethnic groups. Since the City’s founding Service provision Chinese Joss House in Chinatown (1907). The Joss over 160 years ago, Scandinavian, A large percentage of the study area House was a common meeting place for the Chinese community, as well as a place of worship. Photo cour- Greek, Jewish, Roma, Chinese, population is homeless and thus tesy of the Oregon Historical Society. Japanese, Filipino, African American, underrepresented in statistics gener- and Native American workers and ated by the U.S. Census Bureau. With their families filled the streets of the that said, the median documented Skidmore/Old Town area. household income in the study area was approximately one-fourth of the In September 2000, the $12.8 mil- median household income for all lion Classical Chinese Garden opened of Portland in 2000 at $10,871. Per directly northwest of the primary capita income for the study area was study area. The Chinese Garden has just 55% of the per capita income for increased tourism in Chinatown, all of Portland in 2000 at $12,593. In although Chinese residents and busi- addition, 56.5% of area residents lived nesses are slowly migrating to outer- in poverty in 2000. If all area residents ring urban and suburban addresses. were represented, these figures might While it is difficult to ascertain the show an even larger disparity. specific reasons individuals are mov- Chinese laborer (circa 1889). Photo courtesy of the Oregon ing out of Chinatown, recent media During weekdays, sidewalks through- Historical Society. reports identify escalating costs and out the study area are often full of ongoing construction.3 people queuing for the area’s social services. Lines for the Portland Rescue The study area remains more diverse Mission, Salvation Army, Union

FIGURE 2.1: Racial diversity comparison of study area to all of Portland

Finding shelter on a stoop on NW Couch between First and Second Avenues. White Black American Indian/ AsianHawaiian/Other Other Multi-Racial Alaskan Native Pacific Islander

10 | ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK EXISTING CONDITIONS ANALYSIS | chapter ii

Table 2.1: Essential Elements of the Skidmore/Old Town District Identity Today

Cultural Importance: Physical Attributes: Activities: » Significant historically for its links to West » 20 locally designated landmarks and » Strong level of tourism and retail activ- Coast commercial development 46 contributing structures within one ity on weekends due to Saturday Market National Historic Landmark District and other, associated markets » Significant historically for its multicultural heritage and the diversity of its residents » Strong repetition of defining architec- » Strong restaurant and entertainment dis- tural characteristics, such as height, scale, trict due to presence of numerous eater- » Significant in the past 30 years due to the massing, and fenestration ies, bars and nightclubs rise of Saturday Market and other associ- ated markets, giving the District a unique » Pedestrian- and cyclist-oriented design, » Strong social service presence in the flavor achieved through the incorporation District at all hours of the day and week of light rail into the District, vehicular » An emerging cultural/institutional iden- » Strong level of activity during evenings restrictions, and streetscape amenities tity: the Chinese Gardens opened at the and weekends north end of the District in 2000, the » Unique visual features, such as cast-iron » Moderate office and institutional use University of Oregon Portland Campus fronts, Skidmore Fountain, the “canopy” during the weekday created largely by will open in the White Stag Building in created by the Burnside Bridge, and the the creative class and public agencies 2008, and the non-profit organization intimacy of Ankeny Street Mercy Corps is slated to relocate to the » Lessened levels of activity during week- Skidmore Fountain Building in the near days due to current mix of uses future

Gospel Mission, and Central City Overall, Property Crime has decreased the armed forces, those with chemi- Concern are concentrated on highly the past five years, and drug abuse cal dependency, victims of domestic visible, main vehicular thoroughfares cases in the study area and the neigh- abuse, recent parolees, and individuals such as Burnside Street and Second borhood have dropped dramatically. who lack housing and/or employ- and Third Avenues. While concentrat- This can be attributed to several ment. Programs include substance ing social service providers into one factors, including increased police abuse recovery, parole transitioning, area is efficient for both providers and patrol and the exclusion of drug health care, vocational education, users, a visual scarcity of other street dealers and buyers from the area as employment, food and clothing dis- activities creates the perception that part of Portland’s Drug Free Zone tribution, daily shelter, and ministry.5 these streets lack safety and cleanli- Ordinance. Crime reduction data is The provision of social services in ness, a perception that extends to the supported by anecdotal evidence from the District is central to its identity; it study area as a whole, whether accu- Portland patrol officers who have instills the study area with a sense of rate or not. observed a decrease in crime and humanity and compassion. order maintenance issues within the Statistics show that Part 1 Crime study area.4 Entertainment district (murder, rape, robbery, aggravated On most evenings, the streets of the assault, burglary, larceny, motor vehi- The social service providers in the study area serve as Portland’s most cle theft, and arson) in the study area study area provide tangible relief and bustling entertainment spot, dotted remained at a constant level between assistance to the District’s underprivi- with restaurants, bars, nightclubs, 2000 and 2005, but was lower than leged populations. Collectively, organi- and music venues. This activity is in Part 1 Crime in the area during the zations serve over a half-million meals stark contrast to the barren feel of the early 1990s. Total Person Crime in each year and provide programming District on weekdays. Several enter- the study area has been comparable and services to over 10,000 individu- tainment venues contribute to this to that of downtown, with rape and als; the Portland Rescue Mission alone phenomenon – ground floors that assault showing a slight increase in serves nearly 250,000 meals annually. are booming in the late evening are both locations from 2000 to 2005. Individuals served include veterans of dark and empty during daytime busi-

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ness hours. These venues, along with and Sunday for ten months of the vacant storefronts and surface parking year. These markets ring the Skidmore lots, contribute to public perceptions Fountain Building, with Saturday of disinvestment and crime. Market located east of First Avenue and the Skidmore Saturday and Unfortunately, the majority of bars Sunday Market, a group of vendors and nightclubs in the study area, of selling handmade and imported crafts, which there are nearly twenty, do located west of First Avenue. not open their doors until nightfall. For instance, Concept Entertainment According to most sources, Saturday Group operates four venues along Market is the largest outdoor arts and Second and Third Avenues in the crafts market in continuous operation Several of the most popular night clubs in the city are study area, including Barracuda, Bar in the United States. It was founded located in the study area. 71, The Zone, and Dixie. Only Dixie in 1974, modeled after the Saturday opens before 7:00 p.m. Several bars Market in Eugene, Oregon. Over 220 do help to activate the street environ- vendors (on average) gather every ment with sidewalk seating during Saturday and Sunday from the first daily happy hours. However, Portland weekend of March until the week weather limits sidewalk seating to just of Christmas to sell arts, crafts, and five or six months of the year. prepared foods that members make themselves. Most entertainment venues in the study area are located along Second Saturday Market is a mutual benefit and Third Avenues. No entertain- corporation. All members share in the Saturday Market is thriving on weekends, contributing ment venues are located along Naito cost of operations and are allowed to to the District’s identity. Parkway and only the Voodoo keep individual profits made from sell- Lounge, McFadden’s, and Voleur are ing their wares. According to Portland located along First Avenue. The lack Saturday Market management (PSM), of entertainment venues along Naito members generate approximately and First Avenue in an area known for $10 million in annual gross sales and its nightlife contributes to a general attract over one million visitors to the lack of activity near the waterfront. study area each year.6

Urban marketplace Saturday Market is best accessed by The study area has been a weekend foot or transit; all three of TriMet’s destination for Portland residents and MAX light rail lines currently stop at tourists since the mid 1970s due to the site while the 12, 19, and 20 bus the Portland Saturday Market, which routes stop directly above the Market began as a small collective of ven- on the deck of the Burnside Bridge. dors that sold handmade goods on Saturdays only. Today, the study area PSM is the current owner of the The study area contains several pockets of taverns hosts a collection of open air markets Skidmore Fountain Building and and restaurants. and food vendors on both Saturday uses the building’s north parking lot

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MAP 2.3: Current and future weekend marketplace configuration

for vendor booth space during the of its weekend operations. Instead, al lots for vendor space and relinquish weekends. Additional booth space is the building is home to retail and ownership of the Skidmore Fountain obtained by renting parking lots to office tenants. Current market condi- Building. PSM will increase its use of the east of the Skidmore Fountain tions and high vacancy rates for Class Ankeny Plaza for vendor space, and Building from the Naito family, and C office space have lowered rents move the remainder of its operations portions of Ankeny Plaza from the and created insufficient cash flow to across Naito Parkway to Waterfront City. The Naito lots are leased on a cover operating expenses and loan Park. Mercy Corps, an international month-to-month basis. payments for the Skidmore Fountain non-profit aid organization, will likely Building. The Portland Development assume ownership of the Skidmore Saturday Market creates a tremendous Commission (PDC) has been assisting Fountain Building and its adjacent sense of place two days of the week with payment of these expenditures. parking lots and initiate redevelop- for ten months of the year. Ankeny ment of the site. Plaza and the parking lots that house The possibility of redevelopment of Saturday Market are energized when the rented parking lots adjacent to they are in operation. However, the the Skidmore Fountain Building, in area experiences a lack of vibrancy conjunction with the ongoing finan- Built Fabric when the Market is not in operation, cial difficulties of PSM, prompted the with deactivating, empty parking lots PDC and PSM Board of Directors to While people and activities create the creating a dispirited impression. In study options for a permanent home energy that make a place, the built addition, the weekend presence of for Saturday Market as part of this environment sets the stage - buildings, Saturday Market has not catalyzed Development Framework process. streets, and open space can support significant redevelopment or private the energy of a place or detract from investment in the study area. After analysis, the PSM Board and it. Key attributes of the built fabric in the Advisory Committee for the the Skidmore/Old Town District are PSM does not occupy or use the Permanent Home Study have decided summarized below; historic attributes Skidmore Fountain Building as part that PSM will abandon its use of rent- are detailed in Appendix A.

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Historic character is still one of the largest collections of Contributing structures occupy about cast iron on the West Coast. The cast- 62% of building square footage in the iron fronts remaining in the District District and share many height, scale, feature a variety of decorative patterns massing, and fenestration characteris- but share fundamental elements: even- tics. Italianate architecture is the most ly-spaced columns, rounded or cof- prevalent in the study area. However, fered arches, and high ornamentation. significant Richardsonian Romanesque and Early 20th Century Commercial A small number of the approximately structures exist as well. 180 cast-iron fronts lost to “rehabilita- tion” in the early and mid-twentieth Italianate building facades in the area century were salvaged by local citizens. are typically symmetrical, highlighted Owned by the PDC, these remnants by rhythmic fenestrations. The pri- are eligible for reuse in the District Cast-iron Italianate ornamentation in the District. mary and secondary facades of build- in accordance with design guidelines. ings are clearly differentiated. There is The remnants available consist of sev- strong ornamentation on first floors, eral complete facades as well as many with less ornamentation on second smaller, separate, decorative pieces. and subsequent floors. Upper levels feature rhythmic fenestration patterns As mentioned, Romanesque and Early with balanced ratios of wall-to-win- 20th Century Commercial architecture dow surface. Ornamentation is evident impact the District’s historic character on the roof cornice. The cornice itself as well. Seven Romanesque structures is relatively flat with the exception of remain, characterized by heavy stone a parapet, often indicating a building’s arches and robust, structural columns. name and construction date. Twelve Early 20th Century structures remain, constructed of brick and steel

The Early 20th Century Commercial architecture of Italianate building proportions are with rectangular window bays, creating the White Stag Building, currently being renovated. generally wider than tall with strong a simple, streamlined appearance.7 horizontal roof lines. Ground floors are generally somewhat taller than the Missing teeth others (18’- 20’), while the remaining Although the District is graced with floors are of the same height (16-18’). 20 locally-designated landmarks and A sense of verticality is maintained a number of buildings with cast-iron through colonnades and windows. facades, gaps exist in the built fabric.

Many Italianate structures in the area Map 2.4 is a figure ground diagram are marked with an additional defin- showing the existing buildings and ing feature: cast iron. Once found on spans of empty space. Historically, the almost 200 buildings in the District, Skidmore/Old Town Historic District cast iron now fronts only 20 struc- was almost entirely built up; very The Italianate architecture of the New Market Theater tures. This number, while diminished, few lots were without a structure. In abuts the Romanesque design of the Haseltine Building.

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the District for many, recognizable in both modern photos and old.

Ankeny Plaza, located at the inter- section of First Avenue and Ankeny Street, is an open plaza currently graced with large trees and a colon- nade of freestanding arches recon- structed from original cast-iron rem- nants. The colonnade recalls the archi- tectural character of the District in the mid-nineteenth century. Cut pavers also reinforce the historical feeling of Ankeny Plaza.

Waterfront Park is the only other refined open space in the District besides Ankeny Plaza, providing visitors with nearly 30 acres of recre- ational park land, in total. Waterfront Park runs along a linear north-south axis, edging the Willamette River until reaching the south end of downtown. Naito Parkway is a major barrier between the District and the north end of the Park, which has pathways, landscaped open space, and a signifi- MAP 2.4: Study area figure ground cant but little-visited cultural feature the mid-twentieth century, however, “missing teeth” are located south of in the Japanese-American Historical buildings were razed to create room Burnside. Plaza. Crosswalk improvements will, for public infrastructure, surface park- ideally, enable and encourage easier ing, and new development. Open space use of Waterfront Park by District Skidmore Fountain is situated in visitors. Very little of that anticipated develop- Ankeny Plaza, the heart of the ment has in fact occurred. The result Skidmore/Old Town Historic District Streetscape is that the District feels inconsistent: and the Development Framework The alignment of the light rail along beautiful historic buildings look onto focus area. The fountain honors the First Avenue also contributes to the surface parking lots; Naito Parkway memory of Stephen G. Skidmore, an built fabric of the study area. There and the Willamette River are bounded early Portland pharmacist whose will is no on-street parking along First by a built edge that resembles a picket provided $5,000 for the construc- Avenue through the District. In addi- fence; gaps exist on nearly every other tion of a public fountain. Skidmore tion, automobiles are prohibited on block. As Map 2.4 illustrates, most Fountain is the defining feature of First Avenue between NW Everett

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and SW Ash Streets. Streetscape Street grid improvements within much of the Competing mid-nineteenth century light rail corridor include full-grown real estate speculators platted lands in trees, cobbles, MAX transit facilities the West with little to no municipal and signage. The corridor is unique in oversight. So being, many West Coast the District, removed from the vehicu- cities feature street grids that collide lar chaos of the rest of downtown. in interesting misalignments. Couch’s Addition collides with the Portland Major arterials within the District Plat in the middle of the Skidmore/ Facade modification at Burnside Street and Second are configured in a manner that pre- Old Town Historic District, with Avenue, designed to accommodate the bridge’s grade change in the early 1950s. The uninviting facade vents easy access and visibility. The Ankeny Street as their seam. Thus, the detracts from the overall streetscape. Burnside Bridge does not come to following conditions exist today: grade until Second Avenue, which cre- ates street level facades on Burnside of • Ankeny Street is very short because of its unique position at the north what were once second-story fronts. end of the District’s “wedge.” The As these second stories were not siting of the US Bancorp Tower, constructed in 1983 between Fifth designed to serve as facades, many of and Sixth Avenues, eliminated these fronts lack visual appeal, pre- direct access to the street from Burnside. As a low-volume local venting visitors from “experiencing” circulation road with exceptional the District, with the exception of the views of both modern and historic social service queues on the deck of buildings, terminating at Skidmore Fountain, Ankeny Street is a major the bridge. Minor signage exists that contributing factor to the District’s points to the District below, but the identity. signage is hard to see among the bus- • Ash and Pine Streets are also inter- Open space surrounding Skidmore Fountain at tle of cars and buses on Burnside. Ankeny Plaza, the result of colliding street grids. rupted by the US Bancorp Tower. Their disconnect from Burnside renders these streets local circula- Likewise, signage or some form of tion routes as well, significantly dis- entrance feature for the District is couraging car traffic in the District. lacking on Naito Parkway, and stop- lights do not appear to slow south- • Fourth and Fifth Avenues align well across the Ankeny seam, but bound traffic until Ash Street. Major First, Second and Third Avenues improvements to arterial streetscape were once misaligned entirely. At some point, the City acquired features are underway on Naito: cross- additional right of way to con- ings are being improved, along with nect these streets across the two grids. The open space remain- bike paths, lighting and plantings. ing after the realignment of First Avenue served to house Ankeny Minor streets in the District feature Plaza and Skidmore Fountain, key features of the District. The open a number of streetscape amenities, space remaining at Second and such as large trees and historic street Third Avenues was simply paved over, however, and now serves as signage. Primary storefront entrances expanded roadway. are lacking on minor streets, however, adding to a sense of inactivity. Historic scale along Ankeny Street, looking east.

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Table 2.2: Character-Defining Elements of the Built Fabric

» A preponderance of Italianate, Romanesque and Early 20th Century » Historic Skidmore Fountain and the reconstructed cast iron colonnade Commercial architecture dating from the 1850s to the 1920s along First Avenue at Ankeny Plaza, created in street grid open space » Building heights of one to four stories (14 to 85 feet) » Adjacency to Waterfront Park and the openness of Ankeny Plaza » Masonry construction (brick, parged brick, and stone) » Colliding street grid at Ankeny along Second and Third Avenues, cre- ating pockets of paved, underused “open space” in roadway » Cast-iron and wood storefronts with wood windows on upper levels, defined by arching patterns (Italianate) » Burnside Bridge “canopy” over Waterfront Park, Naito Parkway and First Avenue; unattractive facades when crossing Bridge from the east » Strong facades at the street level and on upper stories; clear visual delineation between floors (Italianate) » Multi-modal transportation access, including MAX light rail, automo- bile, bicycle and pedestrian allowances » Strong, rhythmic fenestration patterns; a balanced ratio of wall-to-win- dow surface on upper levels (Italianate) » Historically, an absence of street trees » Heavy stone arches, columns, and cavernous entries (Romanesque) » Historically few (if any) vacant lots » Simple commercial structures with rectangular window bays (20th Century) » Historically, cobblestone street paving

Burnside Bridge “canopy” Access Today’s Burnside Bridge replaced an earlier version built in 1894, which A common attribute of successful came to grade at First Avenue, blend- historic districts is good access. Good ing with the historic streetscape to access requires a strategic location, allow for strong visual lines along the diverse modes of transportation, suf- unbroken facades of Front, First, and ficient parking, and good circulation. Second Avenues. Today’s Burnside Additional information about access, Bridge reaches street level at Second circulation and parking in the study Avenue, three blocks west of the area can be found in Appendix B. waterfront. Strategic location Burnside Bridge coming to grade on the west side of Naito Parkway, creating a canopy over Waterfront The canopy created by the bridge The Skidmore/Old Town Historic Park, Naito Parkway and First Avenue. deck over Waterfront Park and District benefits from centrality and First Avenue is both an asset and a adjacency. The study area is within the constraint. The area west of Naito freeway loop created by Interstates Parkway has been used effectively as 5 and 405. In addition, it is located shelter for Saturday Market and park- at the center of a city-wide grid sys- ing. The bridge canopy also creates a tem that has Burnside Street and the multi-dimensional visual dynamic at Willamette River as its axes. The study First Avenue along the light rail tracks. area also benefits from its proximity to neighboring districts such as the Rose The canopy east of Naito Parkway is Quarter and the Pearl District, linked less than ideal, however. It has typi- through light rail and bikeways. cally served a utilitarian function only as staging for Waterfront Park events, Multimodal transportation and, most recently, for Big Pipe con- The study area is one of the few areas Burnside Bridge “canopy” at Waterfront Park, look- struction equipment. While visually of Portland where it is easiest to get ing west toward the MAX. intriguing, the canopy has not been around without a vehicle. Three bus used to its full potential or value. lines operate on Burnside, stopping

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Circulation Local streets in the District can be characterized as low-volume, one- directional routes. Traffic volumes on streets correspond with their clas- sifications. Access to and from Naito and Burnside is limited. Burnside prohibits left turns in either direction of travel in the study area, and north- bound Naito has a limited number of turn points into the District. Naito is now undergoing reconstruction. Improvements include left turn bays, new traffic signals, median islands, on-street bicycle facilities, crosswalk replacement, and ADA compliant cor- ner curb ramps.

Site Analysis Summary

After extensive site analysis, several overarching issues can be identified that discourage interest in and use of the District by potential new visi- tors and residents. These issues are detailed below and are illustrated in MAP 2.5: Study area transit system Map 2.6. They must be addressed dur- ing the course of redevelopment if the on the bridge just above the Skidmore Ankeny Street and Second Avenue Ankeny/Burnside District is to fulfill Fountain MAX Station. TriMet oper- classified as city walkways. its potential. ates three MAX light rail lines on First Avenue that board over 6,000 pas- Parking Poor pedestrian crossings sengers per weekday at stations in or The District’s current parking system Poor pedestrian crossings exist in two adjoining the study area. Burnside and operates at a high level of efficiency, forms: deficient crosswalks, and road- Second and Third Avenues are clas- particularly during the work week. Of ways that serve as barriers. Pedestrian sified as city bikeways, and all other the 2,578 stalls available, the system crossings that are dangerous or oth- streets in the study area are classified operates within 54 stalls of optimal erwise deficient are located in the fol- as local service bikeways. Waterfront occupancy. There will be a park- lowing places: Park provides a car-free route along ing strain as real estate in the area the river for both cyclists and pedes- becomes more valuable and surface • NW Davis and Naito Parkway; trians, and the entire Central City is lots are infilled. The importance of • NW Couch and Naito Parkway; designated as a pedestrian district with public transportation will increase. • Burnside and Second Avenue;

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• Ankeny Street and Third Avenue; • Ankeny Street and Second Avenue; • Ankeny Street and Naito Parkway.

Crossing issues on Naito Parkway are being addressed during reconstruction of the roadway, currently underway. Raised crossings, curb extensions, or improved signalization and signage could assist in improving other cross- ing issues.

Naito Parkway and Burnside Street present their own, unique pedestrian obstacles. As mentioned, Naito’s issues are being addressed via recon- struction. Burnside has a slow western descent into the District that forms a barrier at several streets, particularly Second Avenue, discouraging crossing. Enhancements to the entire Burnside/ Second Avenue intersection need to be made to establish any sort of pedestrian feel.

Safety and crime Actual crime rates in the Skidmore/ MAP 2.6: Primary issues to be addressed in the study area Old Town District are akin to those in Portland’s downtown. However, hide make both places discomfort- given hour. the presence of bars, taverns, social ing to be at night or when alone. service agencies and their constituents Improvements such as screening, call The street environments along Naito creates a feeling of disinvestment and boxes, and improved lighting could Parkway and Ash Street are relatively diminished safety for many of the enhance visitors’ sense of safety. inactive. Street-level activity along District’s users. First Avenue is sporadic and activity Inactive facades throughout the rest of the District is Two areas suffer from this feeling Inactive edges on buildings are unin- clustered. Inactive edges can be reme- in particular: the Burnside Bridge viting to the pedestrian passerby. At died through the selective construction “canopy” near the Skidmore Fountain edges such as these, ground floor uses of primary storefront entrances, the MAX Station and the “canopy” in are either nonexistent or minimal, and installation of pedestrian furnishings, Waterfront Park. Spatial voids, dark- facade treatments are uninteresting. A or the creation of exciting sidewalk ened corners, and colonnades of casual observer may not see anyone activities such as seating at restaurants bridge piers behind which one could coming or going from these sites in a and food carts.

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On-Street queuing sub-optimally (e.g. personal storage). Social service providers and their con- Approximately 130,000 square feet of stituents are central to the Ankeny/ land, or 17% of non-public right-of- Burnside identity. The humanitar- way land, is also vacant. Most of this ian services provided by social ser- is currently used for surface parking. vice agencies instill the District A detailed description of all land uses with a strong sense of compassion. is provided below, noting occupancy Embracing the “real people” who rates and rental/sale rates per use type. value, depend upon, and utilize the Additional information on this topic District nightlife. District today is a central vision of the can be found in Appendix C. Development Framework. Residential No provisions currently exist for the The study area has a limited supply of queues that develop outside of the housing; the small amount that does District’s social service agencies, as exist primarily serves the subsidized the area’s structures were not designed and/or affordable housing market. with the social service needs of today Land use data suggests that of the 400 in mind. This can be problematic to 450 housing units in the area, 30 to for those seeking services, as they 50% are single-room occupancy units must wait in inclement weather or in (SROs). A constant demand for such the midst of traffic. In addition, it is housing exists, resulting in vacancy believed that some who seek to use the rates that are negligible. District for non-social service reasons avoid it due to intimidation and fear. Market rate rents in the area vary Ongoing daytime activity is prevalent on only some Greater accommodation of queuing from $600 to $800 for a one bedroom blocks in the District. needs to be provided. apartment and $750 to $1,350 for a two bedroom apartment, considerably Union Gospel Mission is at the fore- lower than prices in neighboring areas front of this effort. Their new facil- such as the Pearl District. The amount ity, currently under construction, can of rental or for-sale product in this accommodate queues inside. This will market class is insignificant. be an improvement for both constitu- ents, who will no longer have to stand Office outside while waiting, and passersby. The study area has a relatively active office market with an eclectic mix of tenants attracted to the neighbor- Mix of Uses hood’s unique environment, conve- nient location, and relatively low lease Vacancy rate estimates in the District rates. Specifically, the neighborhood for above-ground-floor square foot- market caters to smaller “pioneer” ten- age range from 15 to 20%. In addition, ants in the creative fields (e.g. software The New Market Theater is primarily office space with some retail and food on the north side. a significant amount of space is used and internet, architects and designers,

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Table 2.3: Summary of District Uses and Use Characteristics » 400-450 housing units in the area with a negligible vacancy rate and » Significant percentage of housing devoted to SROs and very-low almost no for-sale product income residents » 872,000 square feet of office space with a vacancy rate of 10-15%; » Average office and retail lease rates that are 60% of those in the average lease rates currently at $15 per square foot Central Business District » 350,000 square feet of retail space with a vacancy rate of 10%; average » Strong attraction for the creative class and business startups due to lease rates currently at $12 per square foot good location and affordable rates » 91,000 square feet of entertainment and food-related establishments; » Local and independent retailers and dedicated market audience 75,000 square feet classified as general dining, and 16,000 square feet » Large tavern and nightclub presence classified as restaurant/tavern and entertainment » Emerging institutional presence through the rehabilitation of the White » 84,000 square feet of social services; 101,000 square feet of public Stag building for the University of Oregon, and potential rehabilitation facilities; 324,000 square feet of surface and structural parking of the Skidmore Fountain Building for Mercy Corps marketing, and start-ups) that do not the area, as well as their performance. bars, restaurants, daytime eateries, and require a prestigious Central Business coffee shops, as well as theaters and District address, are willing to occupy Specifically, the area is dominated by nightclubs. Restaurants vary in price, less conventional space, and can tol- local and regional independent retail- food type, and clientele; taverns spe- erate perceived neighborhood safety ers, with few national tenants. Retail cialize toward the weekday evening issues. In return, they get direct prox- uses include an eclectic mix of arts clientele and the weekend nighttime imity to the Central Business District and craft venues, galleries, antiques adventurer. and the waterfront, excellent mass stores, and boutiques oriented toward transit and bicycle accessibility, cheap- tourists and Saturday Market patrons. About 91,000 square feet of restaurant er and more abundant parking, a hip The bulk of weekday retail demand is and restaurant/tavern establishments and historic setting, and below-average generated by office workers. However, exist in the study area. Of this, 75,000 costs. This attraction has allowed the the area does not, at present, serve as square feet is classified as general din- District to serve as an incubator office a destination for regular daily purchas- ing. Nearly 16,000 square feet is classi- market for the rest of the City. es by local residents. fied as restaurant/tavern.

About 872,000 square feet of office Annual retail lease rates average about Other uses space exists in the project study area. $12 per square foot, compared to Other land uses in the study area The vacancy rate is estimated at about $20 or higher in the Central Business include social services, public facili- 10 to 15%, which is comparable to District. Overall, there is about ties, parking, and park/open space. downtown as a whole. Meanwhile, 350,000 square feet of retail space in Social services, excluding SRO units, lease rates average about $15 per the study area, most of which is on occupy approximately 84,000 square square foot, as compared to about the ground floor of office, residential, feet of building space. Fire Station #1 $25 for Class A space in the Central or warehouse/storage buildings. The accounts for 101,000 square feet of Business District. vacancy rate is about 10%, compared building space. Approximately 324,000 to 6% in the downtown as a whole. square feet of combined surface Retail and structured parking are scattered The study area currently serves as a Food and entertainment throughout the study area, includ- tourist destination in the Portland As previously mentioned, the study ing the public parking structure at Metro region. This role defines both area is one of the City’s most vibrant First Avenue and NW Davis. Ankeny the type of retail tenant that exists in entertainment districts, with a mix of Plaza provides just over an acre of

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public recreational open space, and in the study area make developing its about $100 to $200 per square foot. Waterfront Park provides, in total, many surface parking lots imprudent. The costs associated with reuse sug- almost 30 acres of public open space. With the existing market conditions gest that annual lease revenues would and an all-around low level of entitle- have to increase by $8.50/square foot The 2008 addition of the University ments, surface parking is estimated to to $17.00/square foot before such of Oregon Portland Campus will add yield the highest return on investment investments would be profitable, or a unique audience to the District as for current property owners. that public subsidy of rehabilitation is students, faculty, and staff search out necessary. support services. Initially, the White Given the existing market and regula- Stag building will provide 90,000 total tory environment, office development The economic model that generated square feet of institutional space, with is infeasible on vacant land, even with the analysis above can be found in classrooms, a library, event space, gal- no alternative uses, because existing Appendix C. Note that all statistics leries, a University store, and a cafe. lease rates will not warrant the level provided above and in Appendix C of investment required. Residential are based upon hypothetical develop- Investment development is estimated to be mar- ment cash-fl ow pro formas for proto- ginally feasible on a vacant parcel with type projects. The study area contains the largest no existing income stream. When cur- concentration of historic buildings in rent income from surface parking is Recent investment Portland. While many of these his- considered, residential development With the recent redevelopment toric buildings were at least partially without subsidy only becomes profit- of several historic neighborhoods renovated or rehabilitated in the 1970s able when a project is allowed to reach in the Central City, interest in the and 1980s, major investments in the approximately 95 feet in height. Skidmore/Old Town Historic District past twenty years have been rela- has piqued. The District’s proximity tively rare, despite a number of public Given existing height restrictions, cur- to light rail, the waterfront, and other financial incentive programs. Notable rent market conditions would need to Central City amenities makes it appeal- renovation and rehabilitation projects improve to make new development ing for many uses. Restoration, adap- between 1975 and 1995 include the: profitable. Economic analysis suggests tive reuse, or essential upgrades of that a 4% increase in average condo- the following structures have recently • Blagen Building (1983); minium sale prices would make the been completed or are currently • New Market Theater (1983); relative return for residential devel- underway: • George Lawrence Building (1985); opment more favorable. For office • Packer Scott Building (Skidmore • Freimann Kitchen Building (2002); development, average lease rates per Fountain Building, 1985); and • Merchant Hotel (2004); square foot would have to increase by • Oregon and Washington • Freimann Restaurant Building (2006); 6% in real terms to make development Investment Trust Building (1991). • 240 SW Oak (underway); preferable to surface parking. • Estate Hotel (underway); The rationale for more recent lack of • White Stag Building/Bickel Block investment, particularly private invest- The financial feasibility of rehabilita- (underway); and ment, may be grounded in economics. tion is difficult to ascertain due to • Smith Block (underway). the unique circumstances associated Development economics with individual projects. According to Because of their potentially higher Economic analysis reveals that prevail- developers, the costs associated with cost and lower rate of return, the ing market and financial parameters successful rehabilitation range from majority of major urban historic reha-

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The University of Oregon’s rehabilitation project will encourage daytime pedestrian activity in the District.

The University of Oregon’s Portland Campus will open in January 2008. Improvements to the White Stag Building and the Bickel Block are underway. MAP 2.7: Current and potential projects in the District bilitation projects utilize some form of Investment proposals currently under public subsidy to assist in their imple- consideration are located in the mentation, from federal tax credits to District as shown on Map 2.7. They state property tax reductions to the include: use of urban renewal funds. Indeed, all • Block 8: restoration/rehabilitation of the above-listed projects required of the block, including the Globe or are requiring some level of public Hotel (PDC-owned); assistance to assist with rehabilita- • Block 10: sale/rehabilitation of tion expenses. Current redevelopment the Skidmore Fountain Building (Saturday Market/PDC-owned) and efforts could assist in improving mar- relocation of Mercy Corps’ world headquarters to block; ket rates so as to enable private-only Smith’s Block is being rehabilitated on Naito Parkway. endeavors in the future, however.

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• Block 11: renovation/reconstruc- tion of the Salvation Army build- Concept. These documents maintain ings (Salvation Army-owned); and the downtown core of Portland as the • Relocation of the Portland Saturday metropolitan regional center for busi- Market to Ankeny Plaza and ness, professional services, finance, Waterfront Park (PDC/Saturday Market concept). and government, and seek to create and maintain vibrant arts and enter- Improvements to infrastructure are tainment districts in the Central City. also underway in the District. Street improvements to Third and Fourth Development plans and studies Avenues, and Davis Street between PDC and the City of Portland have Third and Fourth, were recently been working for decades in the The Downtown Waterfront Urban Renewal Plan completed. Improvements to Naito project area, and have developed a addresses improvements to Waterfront Park and areas adjacent to the Willamette River. Parkway are in progress, and include variety of development plans and improved pedestrian crossings, on- studies that seek to spark revitaliza- street parking along the west side of tion in the District. Of particular rel- the street, and bike lanes, among oth- evance are the Downtown Waterfront ers. Development Opportunities Study, the Downtown Waterfront Urban Renewal Plan, the Old Town/ Planning Context Chinatown Development Plan, and the Central City Urban Renewal Area Study. Each of these documents have Analyzing the planning and regulatory helped guide the project team’s under- context of the District is necessary standing of potential implementation to understand the opportunities and and investment strategies. challenges that future redevelopment initiatives will face. A review of plans, Land use/transportation plans The reconstruction of Naito Parkway is in accordance studies, reports, zoning regulations, with existing transportation plans and studies. Three land use and transporta- and design guidelines was conducted tion plans are particularly relevant to understand development require- to the project area: the Burnside ments in the Skidmore/Old Town Transportation and Urban Design Historic District. A more detailed Plan, the Naito Streetscape summary of this contextual informa- Improvement Plan, and the tion is provided in Appendix D. Waterfront Park Master Plan.

General plans These documents directly impact land Four general plan documents guide use and transportation infrastructure development in the District: the origi- within the District and have been nal 1972 City of Portland Downtown instrumental in developing the evalu- Plan, the 1988 City of Portland ation framework for implementation Central City Plan, the 1995 Central recommendations. City Transportation Management Plan, A diversified mix of housing must be provided as a result of redevelopment efforts. and the Metro 2040 Regional Growth

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Base Zone: Central Commercial tions. Central to the Overlay Zone of the District. A three-tier zoning hierarchy exists in are clauses regarding historic design • “No Net Loss” Housing Policy: In the District that will impact develop- review, demolition review and preser- August 2001, Council adopted a ment efforts. The base zone for the vation incentives. No Net Loss resolution to pre- District is Central Commercial. This serve, rehabilitate and/or replace zone covers all of the Skidmore/Old New construction and major exte- housing in the Central City that Town Historic District, in addition to rior alterations to existing structures is affordable to households at much of the surrounding area. This in the District will require design or below 60% MFI. The resolu- zone essentially calls for high density review, which varies in its intensity tion directed PDC and the Bureau development, pedestrian orientation, depending upon the scope of altera- of Housing and Community and safe and attractive streetscapes. It tions proposed. Demolition review Development to develop funding allows for a wide variety of commer- will occur for contributing structures and implementation plans to meet cial office, retail, and residential uses. in the District only; the City has the near term goals through the pres- authority to deny a demolition request ervation or replacement of 1,200 Central City Plan District or place conditions on its approval. A affordable housing units by 2006. The second zoning tier is the Central variety of preservation-related incen- The study area has a large portion City Plan District (33.510), which tives are also detailed in the code. of the affordable housing in the implements the Central City Plan and Central City. Changes to housing in addresses circumstances particular to Design Guidelines the area must consider the overall the Central City. Regulations from the The Central City Fundamental Design housing mix. Central City Plan District supersede Guidelines are applicable in the base zone provisions where differenc- District. In addition, a District-specific es exist. While many standards articu- set of guidelines, the Skidmore/Old lated in the Central City Plan District Town Historic District Guidelines, apply to the study area, those most also apply. pertinent to this plan include: Special issues • 33.510.200 Floor Area Ratios Two issues are addressed in existing • 33.510.205 Height policy that deserve special attention: • 33.510.210 Floor Area and Height Bonus Options • Entitlements: the District currently • 33.510.225 Required Building Lines has a 75’ height limit and a Floor • 33.510.220 Ground Floor Windows to Area Ratio (FAR) of 4:1 for new • 33.510.225 Ground Floor Active Uses development or redevelopment of • 33.510.261 Parking existing buildings, set forth in the Central City Plan. With bonuses, Historic Resources Overlay Zone an FAR of 7:1 is attainable. These The third tier in the zoning hierarchy limits may make private develop- is the Historic Resources Overlay ment in the District unfeasible if Zone, which works in conjunction market conditions do not improve. with other zoning provisions to pro- However, some level of height and vide the Skidmore/Old Town Historic FAR restriction will be needed to District with strong regulatory protec- preserve the small-scale character

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MAP 2.8: Study area assets, issues and opportunities

26 | ANKENY/ BURNSIDE DEVELOPMENT FRAMEWORK EXISTING CONDITIONS ANALYSIS | chapter ii

Summary of Assets, Issues & Opportunities

Assets

• The Skidmore/Old Town Historic District, unified by one of • Nearly one-fifth of the non-public right of way land in the the nation’s largest collections of cast-iron buildings, is listed study area is currently used as surface parking, creating many on the National Register of Historic Places and has earned pockets of inactivity and “missing teeth” in the built fabric. National Historic Landmark status. • Sporadic activity and vibrancy occur in the study area: • The study area has a rich multicultural heritage and remains Saturday Market only operates on weekends ten months of one of the more racially and ethnically diverse areas of each year and most entertainment venues in the study area do Portland. not open until nightfall.

• Ankeny Plaza and Skidmore Fountain provide a unique urban • There is a general lack of housing in the study area and a very open space and mark the heart of Portland, and Waterfront small residential population; a large portion of the existing Park and the Willamette River are directly east of the District. population lives in poverty.

• Saturday Market attracts over one million visitors to the study • Current market conditions require public subsidization and/ area each year; it will soon occupy some of Waterfront Park. or a change in height/FAR regulations to make significant private development in the study area profitable. • Connections to the waterfront have been improved as part of Naito Parkway’s reconstruction; the Davis festival street provides space for community gatherings between NW Third and Fourth Avenues. Opportunities

• The study area is in a strategic location at the center of • Vacant buildings and surface parking lots offer an opportu- Portland; excellent transit service is available with several nity to redefine the study area and strategically frame the his- buses running east and west along Burnside and three light toric character of the existing built fabric. rail lines running north and south along First Avenue. • The intersections of Ankeny Street at Second and Third • A vibrant collection of evening entertainment venues exists. Avenues include “extra” public right-of-way created when land was acquired to join the streets of the colliding grids; • Social service providers in the study area serve tens of thou- this land could be used to enhance the public realm. sands of individuals each year including veterans, victims of abuse, and homeless individuals. • Three-quarters of Block 8 is available for new development and the Globe Hotel is available for rehabilitation. • There is demonstrated interest in and commitment to the District on the part of major institutional entities. • Mercy Corps may relocate to the Skidmore Fountain Building and a new structure may be constructed on the remaining three-quarters of the site so as to consolidate its global head- quarters and house its microfinance operation and a World Issues and constraints Hunger Museum.

• There is a perception that crime is rampant in the study area, • While funding has yet to be identified, a new plaza and inter- particularly under the Burnside Bridge. active water feature are planned for the area adjacent to the Ankeny Pump Station in Waterfront Park. • Lines form outside many of the social service providers in the study area, contributing to the perceived lack of safety and making adjacent properties unattractive to investors.

Bibliography

1. Interview with National Register of Historic Places, December 21, 2005.

2. United States Department of the Interior/National Park Service. (1975). Skidmore/Old Town Historic District National Register of Historic Places Registration Form.

3. Oregonian. (July 11, 2005). Portland’s Chinatown Moves East: Portland’s tale of two Chinatowns spans about 86 blocks.

4. Interview with Steve Beedle, Planning & Support Department, Portland Police Bureau, November 2006.

5. http://www.portlandrescuemission.org/. Site accessed May 15, 2006.

6. Interview with Paul Verhoeven, December 10, 2005.

7. United States Department of the Interior/National Park Service. (2006). Skidmore/Old Town Historic District National Register of Historic Places Registration Form -- Public Review Draft.

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DEVELOPMENT OBJECTIVES/EVALUATION FRAMEWORK | chapter iii

CHAPTER III DEVELOPMENT OBJECTIVES AND EVALUATION FRAMEWORK

IN THIS CHAPTER UNDERSTANDING CONDITIONS IN THE SKIDMORE/OLD TOWN DISTRICT TODAY allows one to parlay development visions and goals into tangible site objectives, COMMUNITY VISION and to create an evaluation framework for future development carried out in the AGENCY GOALS context of this plan. The objectives and evaluation framework defined herein seek to achieve the community’s visions for the study area, as well as the objectives of DEVELOPMENT PARAMETERS the Bureau of Planning and the Portland Development Commission. The evalu- SITE OBJECTIVES ation framework is strongly informed by the physical and economic parameters of the District today. Appendices A and C provide detailed analyses of two key parameters: the District’s historical significance and development economics.

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Community Vision • Safety improvements under and atop the Burnside Bridge; Through a 15-month planning process • Implementation of priorities from and numerous public involvement other plans, such as the Old Town/ efforts, an overarching community Chinatown Vision/Development vision was defined for the Ankeny/ Plan, that are yet unrealized; and Burnside Development Framework: • Investment of available public funds “Create a vital and vibrant District that as strategically as possible so as to retains and reinforces the history and charac- improve market conditions and ter of the Ankeny/Burnside area.” enable future, fully private market developments. This vision was expanded through The first of three community workshops focused on establishing a vision for the study area. public workshops, technical advisory group meetings, and stakeholder inter- Agency Goals views and meetings to include: The Skidmore/Old Town Historic • Activation of the District; District has numerous development • Consideration of new, mixed uses; assets, but lacks daily activity. In addi- • Retention of existing, unique uses; tion, the District has high vacancy • Preservation and enhancement of rates, provides a low level of tax existing historical character; revenue, and suffers from a nega- • Retention of a pedestrian feel; tive public perception that crime in • Enhancement of links to adjacent the District is worse than elsewhere neighborhoods and open space; and in downtown. So being, the Portland • Retention of a mix of incomes, Development Commission and the ages, and races in the District. Portland Bureau of Planning cre- As the planning process concluded ated the following goals for the Project staff provided background context on a site tour with the Stakeholder Advisory Group (SAG). and draft Development Framework Development Framework, some of recommendations were revealed, which coincide with the community five additional community priorities goals noted above: emerged. They included: • Stimulate development on vacant • Development of a cohesive District and underused land; identity that reflects Skidmore/ • Encourage the reuse and preserva- Old Town’s unique character, yet tion of historic structures; complements adjacent downtown • Maintain and improve public plazas, neighborhood identities; parks, and streets; • Retention of the historic charac- • Improve transit and transportation ter of the District through strong infrastructure; regulatory reviews and incentives • Establish strong connections to the for the reuse of original cast-iron rest of downtown, Waterfront Park, Design charrette participants create development models that respond to stated visions. remnants; and the Willamette River;

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• Increase housing and jobs; and • Allocate available public resources in a manner that will most effectively and efficiently stimulate private-market investment.

Development Parameters

A contiguous built fabric, diversity of uses, and critical mass of users are com- mon to successful, market-driven his- toric districts throughout the nation, as detailed in Appendix E. It is felt that the Skidmore/Old Town Historic District needs to fill in its “missing teeth” and expand its range of facility types to attract new and more visitors to the Rehabilitating historic structures carries greater financial risk than new construction due to the unpredict- District. With increased market oppor- ability of site conditions. Restoration and rehabilitation costs can range from $100-$200 per square foot. tunities, fully private investment may be more viable. in the District (not including public rights recommend a variety of spatial and aes- of way) is occupied by historic structures; thetic treatments. New construction and Market-driven investment carries with it, 62% of building square footage is derived major exterior alterations to existing struc- however, the risk of overzealous modifi- from historic properties. The entire study tures in the District will require design cations to the built fabric. As detailed in area is encompassed by the Skidmore/Old review. Demolition review will occur for Appendix E, successful, market-driven Town Historic District, and both zoning contributing structures in the District; the historic districts in the United States and regulations and design guidelines impact City could deny a demolition request or Canada also share a strong regulatory exterior alterations and new construction. place conditions on its approval. A vari- review process for exterior alterations ety of preservation-related incentives also and new development. Two zoning regulations will most impact exist as a result of the zone overlay. future redevelopment efforts in the study Several significant parameters exist for area, although many regulations apply. A Economic constraints development in the Ankeny/Burnside 75’ foot height limit will restrict additions Historic structures have redevelopment area. These parameters shape the ways and new construction; a maximum Floor costs that average $100-$200 per square in which community and agency visions Area Ratio (FAR) of 4:1 will impact allow- foot, and expenditures for such projects and objectives can be implemented. In able density. are less predictable than those for new some instances, development parameters construction. Thus, adaptive reuse is a are eligible for reconsideration; other The District also has a strong regulatory greater financial risk than new construc- parameters are fixed. review process for exterior modifications tion and infill. and new construction due to its presence Physical constraints in the Historic Resources Overlay Zone. The ground floor configurations of many Fifty-five percent of existing land area Design guidelines specific to the District historic buildings in the District are not

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attractive to some large national-level 1) Expand the number and mix of retailers, dissuading some potential uses offered in the area beyond anchor tenants from investing. nighttime entertainment venues and weekend commercial use so as to Current market conditions require diversify the range of users and use public subsidization and/or a change patterns. Specifically, encourage office, in regulations to make significant pri- institutional, and residential uses, vate development in the area profit- which would increase traffic flows able, and thus, feasible. during the day and in the evenings. Pedestrian features, such as crosswalks, enhance a Encourage office and institutional sense of safety and connectivity. Improve crossings in the District where possible. Recent development decisions support use north of Ash Street and east of the notion that true market-driven Second Avenue. Encourage residential investment is not possible in the development south of Ash Street, east District today. Several rehabilitation of Second Avenue. and new construction projects are underway. While momentum is build- 2) Maintain existing entertainment and ing in the study area, these projects are commercial uses to retain the vibrancy all relying upon some level of public that does exist at night and during subsidy from local agencies to fill their the weekends. Focus entertainment funding gaps. venues west of First Avenue. While ground floor retail and entertainment may be appropriate in several loca- Site Objectives tions, waterfront opportunity sites Explore options for increased height and density that complement the historic character of the Skidmore/ should be retained for market rate Old Town Historic District . With community visions, agency goals residential and Class A office devel- and development parameters in mind, opment. Reconfigure existing market the following site-specific objectives uses to allow for redevelopment of the were derived for the Skidmore/Old Skidmore Fountain Building. Town Historic District. These objec- tives will serve as an evaluation frame- 3) Implement associated objectives: work for assessing future projects improve the public realm to allow for and overall progress in the context special events and activities; improve of this plan. These objectives are also pedestrian features so as to enhance a the foundation of the implementation sense of safety and connectivity. strategy detailed in Chapter Six. Encourage economic rebirth Activate the District The combination of current market The District is currently active eve- conditions and restricted entitlements nings and weekends. To activate the are serving as a disincentive to capi- District the rest of the time, the fol- tal investment. To stimulate private Reuse of cast iron remnants from the District has lowing objectives should be imple- investment in the District, the follow- already occurred to enhance landscape design; reuse of cast iron in new construction is encouraged. mented: ing objectives should be implemented:

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1) Discern which sites in the District for such projects requires a lessened are “catalytic opportunity sites,” mean- public subsidy or height increases of ing their development will have the only 20 feet (two stories), as compared largest positive impact on revitaliza- to the higher public subsidy or height tion in the area for the least amount of increases required for office and insti- public investment. Encourage anchor tutional development. tenants in these opportunity sites, and evaluate what level, if any, of public 4) Implement associated objectives: subsidy would generate the highest create a diverse mix of uses to bring rate of private return. new users to the District and diversify existing use patterns; retain existing 2) Consider the visual and contextual high-visibility uses, such as Saturday impact of increased height limits on Market, which is a small business incu- the Skidmore/Old Town Historic bator as well as a tourist and resident District. Several potential development attraction. sites exist where additional height and density may not negatively impact the Retain existing character, Consider how the mix of housing impacts overall historic character of the area. Consider uses, and the mix of people demographics when planning housing developments. increasing effective height limits and The Skidmore/Old Town Historic FAR in areas where current vacant District is one of only two National parcels exist, and retaining height lim- Historic Landmark Districts in its and the current FAR in areas where Oregon. In addition, the area’s current few vacant plots exist. mix of uses makes it a unique destina- tion within the metropolitan area. To Such a strategy could reduce the need retain the District’s character, unique for public subsidy on some blocks, uses, and mix of people, the following thus increasing the pool of public objectives should be implemented: money available for preservation on blocks with significant or contribut- 1) Review the existing regulatory Weekday surface parking is currently used by Saturday ing structures. This objective is not framework and revise as necessary. Market vendors. Saturday Market will soon adjust its location to allow for development of these lots. intended to encourage the demolition Consider the importance of design of historic structures; care should be guidelines to the retention of distinc- taken to avoid this. This objective tive historic features. Evaluate which would have the added benefit of cre- guidelines need to be refined and ating a visual transition between the strengthened to ensure that new con- District and taller adjacent develop- struction fits with the existing visual ment. character. Evaluate which, if any, of the existing zoning regulations serve 3) Strongly encourage residential to diminish capital investment and development on vacant land that is could be modified to encourage pri- in closest proximity to contributing vate enterprise. Saturday Market is a distinctive venue within the region. Build upon this asset to reposition and revi- structures, as the feasibility threshold talize the District.

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2) Encourage the reuse of original street pattern that showcases historic cast-iron remnants through incentives. architecture and character. Enhance 3) Provide for social service venues pedestrian accessibility on this street in building, streetscape, and land- by improving crossings at scape redesigns. Current building and Second Avenue, and reducing or elim- streetscape configurations have no inating vehicular access on Ankeny. provisions for the queues that assem- ble today, creating the perception of 3) Take advantage of the District’s a public safety issue. Make room for strategic location and multi-modal these services to allow them to more transit access to encourage mixed-use easily co-exist with new development. development. Envision what uses are most enhanced by the presence of 4) Implement associated objectives: light rail and other modes of public retain existing high-visibility uses, transit. Improved connections to Waterfront Park are sought such as Saturday Market, which is to enhance the pedestrian scale of the District, as well as existing recreational and landscape assets. both a tourist and resident attraction; 4) Microenterprise is a defining feature improve pedestrian features so as to of the District at present, and an ele- enhance a sense of safety and con- ment many wish to preserve. Consider nectivity while maintaining the existing how small businesses and market ven- sense of scale. tures can be best served through poli- cy decisions and facility designs. Make Capitalize on existing assets space for market-oriented enterprise Several strong assets exist in the throughout the District. District, and should serve as founda- tional elements of any redevelopment 5) Implement associated objectives: effort. To capitalize on the District’s encourage preservation and enhance- best existing assets, the following ment via modifications to existing objectives should be implemented: design guidelines and the reuse of Multi-modal access is a key asset within the District. original cast-iron remnants; retain Use and improve existing transportation infrastruc- ture during redevelopment. 1) Take advantage of recent improve- existing high-visibility uses, such as ments to Naito Parkway when Saturday Market, which is both a tour- positioning or repositioning new ist and resident attraction. and existing uses, such as Saturday Market. Ensure that proposed uses Retain/enhance the existing benefit from improved crossings and pedestrian environment enhanced access to Waterfront Park, a Pedestrian access to the Ankeny/ regional recreational attraction. Burnside District is not only vital for successful redevelopment, as detailed 2) Use the scale and location of above, but is central to the District’s Ankeny Street to its maximum advan- appeal: the area’s pedestrian scale is Perceptions of safety must be improved, particularly tage. Ankeny features low traffic vol- deeply reflective of the District’s his- under the Burnside Bridge, to encourage activity and use. umes, a pedestrian scale, and a unique tory and is unique among downtown

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neighborhoods. To retain and enhance this central feature, the following objectives should be implemented:

1) Improve key elements of the pedes- trian environment: crossings at major intersections and screens and dividers near maintenance corridors so as to enhance the visitor or resident’s sense of personal safety.

2) Restore historic landscape features, such as paving materials, plantings, benches and decorative lights, based upon research and documentation.

3) Redevelop open spaces in Waterfront Park and Ankeny Plaza to support more programmable and One asset of the District is its distinctive architecture, featuring large windows and strong vertical and hori- interactive events. zontal lines. New construction should complement these features.

Table 3.1: Development Framework Objectives

Activate the District Encourage economic rebirth Capitalize on existing assets » Diversify the current mix of uses » Identify/develop catalytic opportunity sites » Maximize recent infrastructure/building improvements when planning new uses » Maintain existing active uses, » Consider the benefits and drawbacks of such as retail, market, restaurant and increased height and FAR in the District » Use the District’s location and multi- entertainment venues » Encourage residential development near modal access to its best advantage » Enhance pedestrian features and other contributing structures in order to respect » Consider how to best serve small businesses elements of the public realm to inspire existing height/FAR limits » Encourage the reuse of cast iron a greater sense of comfort and safety in » Consider office/institutional uses at edge » Retain high-visibility uses like Saturday potential new visitors and residents opportunity sites, where increased height/ Market FAR limits may have a lesser impact

Retain existing character, uses and Retain/enhance the existing pedestrian mixes of people environment » Encourage the reuse of cast iron through incentives » Improve the public realm but retain the existing scale » Provide for queuing in building/landscape redesigns » Restore historic landscape features » Retain high-visibility uses such as Saturday Market » Redevelop open spaces and plazas to provide for bet- » Strengthen the regulatory framework as is necessary ter event programming » Improve the public realm but retain the existing scale

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CONCEPT DEVELOPMENT | chapter iv

CHAPTER IV CONCEPT DEVELOPMENT

IN THIS CHAPTER THIS CHAPTER OUTLINES THE PROCESS, PRINCIPLES, AND CONCEPT EVOLUTION of the urban design vision for the Skidmore/Old Town Historic District. Critical DESIGN PROCESS development and relocation decisions were made throughout the 15-month DESIGN PRINCIPLES planning process that necessitated a flexible and responsive conceptual design approach. Thus, the Development Framework planning process was punctuated CONCEPT EVOLUTION with three design charrettes. During these charrettes, key design concepts were conceived and then refined with project staff, technical advisory and stakeholder advisory group input. Each iteration of the urban design concept built upon the strengths of previous iterations, addressing new challenges and incorporating new opportunities as they arose throughout the process.

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Design Process Design Principles

The urban design concept for the The challenge of the first design char- Skidmore/Old Town Historic District rette was to distill a large volume of evolved over the course of fifteen site and other information into a con- months and three intensive design cise set of design principles to guide charrettes. A design charrette, named the team during the design process. for the cart that was used to collect Overarching project goals were trans- 1. Introduce a wide range of uses to create a vibrant neighborhood. the work of design students at the lated into ten design principles: École des Beaux-Arts in Paris after 1. Introduce a wide range of uses to several sleepless nights of work, is an create a vibrant neighborhood; intensive, collaborative design session 2. Support and enhance Saturday that typically spans multiple days. Market, a magnet in the study area; 3. Respect the historic form and char- The charrettes employed in the design acter of Skidmore/Old Town; process each spanned two days and 4. Capture the essence of history in brought together a team of planners, a modern city through building urban designers, architects, econo- heights, while respecting the integ- mists, and transportation specialists. 2. Support and enhance Saturday Market, a rity of the District; magnet in the study area. The first charrette, held in February 5. Increase residential density and 2006, concluded with a public presen- housing choice in the District; tation. The second charrette occurred 6. Connect the District to the River in May 2006 and the final charrette and the Central City; occurred in September 2006. Both the 7. Reduce the impact of Naito second and third charrettes concluded Parkway through functional and with presentations to project staff and streetscape improvements; the Stakeholder Advisory Group. 8. Reinforce Ankeny Plaza as the cen- tral focal space for the District; The design process built upon a strong 9. Create an animated public realm foundation of input gathered dur- with public-oriented uses on the ing three well-attended community 3. Respect the historic form and character of ground floor; and workshops, stakeholder interviews and Skidmore/Old Town. 10. Locate new parking facilities to ser- Stakeholder Advisory Group meetings, vice the whole District. and from City and PDC staff.

4. Capture the essence of history in a modern city through 5. Increase residential density and housing choice in the District. building heights, while respecting the integrity of the District.

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6. Connect the District to the River and the Central City. 7. Reduce the impact of Naito Parkway through functional and streetscape improvements.

2B. Fire Station #1 doesn’t move and Concept Evolution Public Market does locate to the Skidmore Fountain Building. A secondary goal of the first design charrette was to examine develop- The preferred concept from the first ment and revitalization potential with charrette was Scenario 1B because it and without the move of Fire Station had the greatest potential for catalytic #1. At the beginning of the planning change and the development of a mar- process, Fire Station #1 was slated to ket concept, while minimizing impacts move to Block 8 in the District, as its to existing markets. 8. Reinforce Ankeny Plaza as the central focal current facility on Block 34 does not space for the District. meet seismic code. Block 34 was also The goal of the second charrette was identified as a catalytic opportunity to create a scenario that showcased the site in the Waterfront Development Portland Saturday Market while maxi- Opportunities Study. However, it was mizing catalytic change. The result was decided mid-way through the planning a design concept that located Saturday process that Fire Station #1 would not Market in plazas along Ankeny Street, move because of exorbitant construc- moved Fire Station #1, and made the tion cost estimates. Skidmore Fountain Building and Block 10 available for Mercy Corps. As it occurred before the final decision 9. Create an animated public realm with public- oriented uses on the ground floor. on Fire Station #1 was made, the first The goal of the final charrette was to charrette ended with a public presenta- incorporate the strengths of the pre- tion of four development scenarios: vious design concepts in light of the decision to keep Fire Station #1 on 1A. Fire Station #1 moves and the Block 34 and locate Saturday Market Portland Public Market locates in in Ankeny Plaza and Waterfront Park. Skidmore Fountain Building; The concept identified catalytic oppor- 1B. Fire Station #1 moves and other tunity sites and included removing the uses move into the building; fire museum from Block 34 to expand 2A. Fire Station #1 doesn’t move and Ankeny Plaza. the Public Market does not locate 10. Locate new parking facilities to service the into the District; and whole District.

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DESIGN CHARRETTE I: URBAN DESIGN CONCEPT WITH & WITHOUT FIRE STATION MOVE

FIRE #1 MOVE W/ PUBLIC MARKET IN FIRE #1 MOVE W/ PUBLIC NO FIRE #1 MOVE AND SKIDMORE FOUNTAIN BUILDING MARKET ON BLOCK 34 NO PUBLIC MARKET

• Fire Station #1 moves north to • Fire Station #1 moves north to • Fire Station #1 doesn’t move Block 8 Block 8 • Fire museum removed to • Public Market in Skidmore • Public Market on Block 34 expand Ankeny Plaza Fountain Building with hotel or residential above • Saturday Market in current • Residential on Block 34 • Moderate height & density location & expanded Plaza • Moderate height & density increase at select edge sites • No Public Market increase at select edge sites • Saturday Market in Waterfront • Substantial height & density • Saturday Market in Waterfront Park & under Burnside Bridge increase throughout District Park & Ankeny Plaza • University of Oregon in White • No University of Oregon • University of Oregon in White Stag Block

KEY ELEMENTS Stag Block • New parking structures on • New parking structures on Block 28 and Block 30 Block 28 and Block 30

• Adds to the existing cluster of • Adds to the existing cluster of • Quickly increases number of markets markets residents in neighborhood • Increases number of residents • Increases number of residents • Increases mix of housing and mix of housing in the and mix of housing in the • Creates new jobs neighborhood neighborhood • Expands Ankeny Plaza • Creates new jobs • Creates new jobs • Revenue from sale of height • Adds student population to • Adds student population to and FAR bonuses the District the District • Includes hotel on Block 34 OPPORTUNITIES

• Requires activation of market • Moves Saturday Market into halls on weekdays • Signifi cant increase of Waterfront Park • May move portion of Saturday allowable height and density • Moves Fire Station #1 Market to Waterfront Park detracts from historic • Increase of allowable height • Moves Fire Station #1 character and density at the edges of • Residential over Public Market • Removes Fire Museum Historic District • Increase of allowable height • Little new development near • Site not ideal for Public and density at the edges of Ankeny Plaza CHALLENGES Market Historic District

Creation of market District Public Market displaces with minimal disruption to Diminished historic character Saturday Market existing markets with minimal change to core NOT PREFERABLE PREFERABLE NOT VIABLE CONCLUSION

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CHARRETTE II: CHARRETTE III: DESIGNING FOR FIRE STATION STAYING SATURDAY MARKET IN CURRENT LOCATION

NO FIRE #1 MOVE W/ PUBLIC MARKET MARKET SPINE ALONG MARKET IN WATERFRONT PARK IN SKIDMORE FOUNTAIN BUILDING ANKENY STREET & ANKENY PLAZA

• Fire Station #1 doesn’t move • Saturday Market in three • Fire Station #1 doesn’t move • Fire museum removed for new nodes along Ankeny • Fire museum removed to residential development • Fire Station #1 moves north to expand Ankeny Plaza • Public Market in Skidmore Block 8 • Saturday Market in Ankeny Fountain Building • Public Market on Block 34 Plaza & Waterfront Park • Substantial height & density with hotel or residential above • No Public Market increase throughout District • Moderate height & density • Moderate height & density • Saturday Market in Waterfront increase at select edge sites increase at select edge sites Park & Ankeny Plaza • University of Oregon in White • Mercy Corps on Block 8 or • University of Oregon in White Stag Block Block 10 Stag Block • New parking structures on • Parking structure on Block 31 • New parking structures on Block 31 and Block 30 • University of Oregon in White Block 28 and Block 30 Stag Block

• Adds to the existing cluster of • Adds to the existing cluster of • Expands Ankeny Plaza markets markets • Supports Saturday Market • Signifi cantly increases number • Increases number of residents • Increases number of residents of residents in neighborhood and mix of housing in the and mix of housing in the • Increases mix of housing neighborhood neighborhood • Creates new jobs • Creates new jobs • Creates new jobs • Activates Ankeny Plaza • Adds students to the District • Adds students to the District • Revenue from sale of height • Strengthens Ankeny • Strengthens Ankeny and FAR bonuses connection connection

• Signifi cant increase of • Moves portion of Saturday allowable height and density Market into Waterfront Park • Moves Saturday Market detracts from historic • Creates a three node scenario partially into Waterfront Park character for Saturday Market • Removes Fire Museum • Moves Saturday Market into • Moves Fire Station #1 • Increase of allowable height Waterfront Park • Relies on market spaces in and density at the edges of • Removes Fire Museum Ankeny R.O.W. Historic District • Public Market without Fire • Increase of allowable height Station #1 move and density in Historic District

Diminished historic character Confl icts with City’s later Showcases Saturday Market, and displacement of decision not to move fi lls missing teeth, and Saturday Market Fire Station #1 maintains historic character NOT VIABLE NOT VIABLE PREFERRED ALTERNATIVE

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