Volume 3: Natural Resources Protection Plan Acknowledgements Portland City Council John Cole, Senior Planner Ted Wheeler, Mayor, Commissioner in Charge Eden Dabbs, Communications Coordinator III Chloe Eudaly, Commissioner Joan Frederiksen, City Planner II Nick Fish, Commissioner (deceased) Krista Gust, Graphics Designer III Amanda Fritz, Commissioner Neil Loehlein, GIS Technician Jo Ann Hardesty, Commissioner Carmen Piekarski, GIS Analyst Nicholas Starin, City Planner II Portland Planning and Sustainability Commission Previous contributing staff: Marc Asnis, City Kathryn Schultz, Chair Planner‐ Urban Design; Marty Stockton, City Chris Smith, Vice Chair Planner II; Leslie Wilson, Graphic Design Eli Spevak, Vice Chair Jeff Bachrach Inter‐bureau Team Ben Bortolazzo Maya Agarwal, Emily Roth and Brett Horner, Mike Houck Portland Parks and Recreation Katie Larsell Adam Barber, Multnomah County Planning Akasha Lawrence Spence Courtney Duke, Portland Bureau of Oriana Magnera Transportation (PBOT) Daisy Quiñonez Laura John, Tribal Liaison, Office of Government Steph Routh Relations Paul Ketcham and Kaitlin Lovell, Bureau of Bureau of Planning and Sustainability Environmental Services Andrea Durbin, Director Morgan Steele, Bureau of Development Joe Zehnder, Chief Planner Services Sallie Edmunds, Central City, River & Environmental Planning Manager Previous staff: Debbie Bischoff, Senior Planner, Project Michael Cerbone, Multnomah County Planning; Manager Kevin Donohue, PBOT; Alex Howard, Office of Jeff Caudill, City Planner II, Project Manager Management and Finance Contributing staff: Consultants: Barney & Worth, facilitation Cassie Ballew, City Planner I services Mindy Brooks, City Planner II Cover illustration by James Pettinari Ethan Brown, City Planner II Shannon Buono, Senior Planner And many thanks to all participants in the River Plan/South Reach planning process and whose contributions have helped shaped this draft plan. Volume I: Policies, Objectives and Recommendations HOW TO COMMENT You may submit comments to the Planning and Sustainability Commission on the Proposed Draft by: Email Send an email to [email protected] U.S. Mail Portland Planning and Sustainability Commission River Plan/South Reach Testimony 1900 SW Fourth Avenue, Suite 7100 Portland, Oregon 97201 In Person Portland Planning and Sustainability Commission Hearing February 25, 2020 at 5:00 p.m.* 1900 SW 4th Avenue, Second Floor, Room 2500 *Please call 503‐823‐7700 one week before the hearing for the scheduled time of this agenda item For more information Visit the project website: https://www.portlandoregon.gov/bps/42548 Contact the project team: [email protected] TESTIMONY DUE: FEBRUARY 25, 2020 Volume I: Policies, Objectives and Recommendations DEDICATION To Commissioner Nick Fish, who championed the protection of Portland’s rivers and streams and cared deeply about creating places for people to enjoy the outdoors. (September 30, 1958‐January 2, 2020) Volume I: Policies, Objectives and Recommendations TABLE OF CONTENTS Volume 1. POLICIES, OBJECTIVES AND RECOMMENDATIONS Part 1. Overview Chapter I. Introduction 1 A. Background 1 1. History of South Reach 2 2. Willamette River 4 3. Existing Conditions 5 B. Planning and Policy Context 10 1. State Law 10 2. Federal Law 11 3. Regional 12 4. City of Portland 12 C. Planning Process 14 1. City and Inter‐Governmental Coordination 14 2. Public Engagement 16 Chapter II. Future of the South Reach 18 Chapter III. Policies, Objectives, and Recommendations 27 A. Introduction 27 B. Watershed Health and Resilience 28 1. Overview 28 2. Development and Natural Resources Management 28 3. Existing Natural Areas and Open Spaces 35 4. Watershed and Natural Areas Restoration 38 5. Floodplain Management and Climate Resilience 42 C. Recreation 47 1. Overview 47 2. Public Parks and Natural Areas 47 3. Riverfront Trails and Connections 51 4. Private Recreation 54 5. In‐River Recreation 56 6. Scenic Resources 61 D. Tribal Engagement and Collaboration 64 1. Overview 64 2. Understanding, Protecting and Preserving Native American History and 65 Culture 3. Culturally Significant Natural Resources 69 Volume I: Policies, Objectives and Recommendations 4. Parks, Recreation and Natural Areas 71 E. Riverfront Communities 73 1. Overview 73 2. Brooklyn 73 3. Sellwood 75 4. Southwest Portland 78 5. Riverdale / Dunthorpe 84 6. Floating Home Communities 84 7. Houseless Communities 85 Part 2. Implementation Tools A. Comprehensive Plan Amendments 3 1. Comprehensive Plan Policy Amendments 3 B. Zoning Code and Map Amendments 7 1. Zoning Code Amendments 7 2. Base and Overlay Zone Map Amendments 211 South Reach Map Changes by Quarter Sections 216 Central City Scenic Overlay Map Changes by Quarter Sections 263 C. Establish a Macadam Civic Corridor Character Statement and Repeal the 302 Macadam Corridor Design Guidelines D. Action Plan 343 1. Watershed Health and Resilience 345 2. Recreation 352 3. Tribal Engagement and Collaboration 361 4. Riverfront Communities 364 Appendices 370 A. Relevant 2035 Comprehensive Plan Goals and Policies A‐1 B. Technical Memorandum on South Reach Archaeological Resources B‐1 Volume 2. SCENIC RESOURCES PROTECTION PLAN under separate cover Volume 3. NATURAL RESOURCES PROTECTION PLAN under separate cover Volume 4. WILLAMETTE GREENWAY INVENTORY to be included in Recommended Draft Volume 5. BACKGROUND MATERIALS under separate cover Volume I: Policies, Objectives and Recommendations The South Reach project boundary, in red above, extends from the Ross Island Bridge down to and including the unincorporated Multnomah County neighborhood of Riverdale/Dunthorpe. The boundary is aligned with SW Macadam Blvd to the west and generally follows the bluff to the east. Volume I: Policies, Objectives and Recommendations PART 1. OVERVIEW CHAPTER I. INTRODUCTION A. BACKGROUND The Willamette River is a defining feature in the City of Portland and State of Oregon. Oregon Statewide Planning Goal 15, Willamette River Greenway, mandates jurisdictions along the Willamette River “protect, conserve, enhance and maintain the natural, scenic, historical, agricultural, economic and recreational qualities of lands along the Willamette River.” In 1987 the City of Portland adopted the Willamette Greenway Plan to manage the river and development along and adjacent to its shoreline, implementing the mandates set forth in the statewide planning goal. Since then the City’s approach to planning for the Willamette River has evolved. After the development of a new vision and strategy for the entire river in River Renaissance (2001), the River Concept (2006) established a process by which the City would complete updates to the Willamette Greenway Plan for three individual reaches: North Reach, Central Reach and South Reach. This three‐phase multi‐objective approach allows for recognition of the unique character of each reach and ensures appropriate plans and regulations are developed to address those unique features. The South Reach is the most undisturbed of the three reaches, with its multitude of parks and open spaces, while also providing for a diversity of residential uses along the riverfront. The River Plan / South Reach project will update the Willamette Greenway Plan for the City’s southern reach of the Willamette River for the next twenty years by: Establishing a renewed vision for the area. Updating existing policies and regulations. Identifying implementation actions. Identifying future South Reach investments. The River Plan / South Reach study area stretches from the Ross Island Bridge down to just south of the Sellwood Bridge on the east side and includes the unincorporated area of Dunthorpe, for which the City has planning authority, on the westside. River Plan / South Reach Proposed Draft Pt 1, pg 1 Volume I: Policies, Objectives and Recommendations 1. HISTORY OF THE SOUTH REACH The Willamette and Columbia rivers have played a central role in the daily lives of Native peoples from pre‐ European contact to today. The Willamette Valley was populated by various native peoples who camped, fished, hunted and gathered foods along the Willamette River. Other Native peoples from the Pacific Northwest, also traveled to, through, lived in and carried out customary activities in the Willamette Valley, including the South Reach area. The Willamette River was a primary transportation corridor since it was easier to navigate in canoes rather than traversing through dense forests. In the South Reach, Native peoples gathered wapato from the wetlands at Oaks Bottom and also hunted waterfowl and collected acorns, huckleberries and other plants along the riverfront for sustenance, as well as medicinal and cultural purposes. Treaties between the tribes and U.S. government executed in the 1850s resulted in the resettlement of many tribes to remote reservations. Portland has a large population of Native Americans today. Some are descendants of NW tribes, others are affiliated with tribes from around the country. The City of Portland was established in the 1840s because of its deep‐water moorage, and link to the Pacific Ocean via the Columbia River. However, large sailing ships rarely ventured upriver of Portland because of their deep keels, the narrow river channels and winds. In its natural state, the river was a half‐mile wide at Ross Island but only 9 feet deep. European American settlement in the Willamette River area in the 1800s and through today, have greatly altered the landscape. This includes clearing and degrading forests and uplands and