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11/19/1987 - Packet AGENDA CITY CENTER PLAN TASK FORCE THURSDAY, NOVEMBER 19, 1987, 7:00 - 9:30 P.M. CIVIC CENTER - TOWNHALL CONFERENCE ROOM 13125 SW HALL BLVD. , TIGARD, OR 1. CALL TO ORDER 2. ROLL CALL: ASH COHEN DEFFERDING JUAREZ MARR 3. APPROVE MINUTES 4. RECENT" LAND USE ACTIONS: NEWTON 5. SALEM l'OUR: ROBERTS 6. PROPOSED REQUEST FOR PROPOSALS: GROUP DISCUSSION 7. IDENTIFICA'T`ION OF TRAFFIC; AND TRANSPORTATION PROBLEMS: GROUP DISCUSSION 8. OTHER BUSINESS 9. ADJOURNMENT Pagan's Perspective By Alfred R.Pagan,P.E., Consulting Engineer&Contributing Editor Railroad Grade Crossings Inever gave much thought to the problems of railroad on the subject of grade crossings before and that,perhaps, grade crossings because I grew up on the assumption it would be instructive to do a little research in the matter. that the thank-you-ma'ams, as they are sometimes called, Based on my brief inquiries, there appear to be two pri- are something we all have to live with if we are going to mary methods for preparing grade vehicular crossings at drive vehicles on public streets.Given the facts that:(1)it is railroads. They are (1) the old fashioned way, primarily economically impossible to separate all crossings, (2) rail- using traditional materials such as asphalt,timber,or con- roads will continue to exist,and(3)vehicular roadways will crete, and (2) methods using proprietary materials which do likewise,I have always assumed that the inconvenience are primarily rubber based elastomers which have flexibil- and discomfort of the teeth-rattling, bone-jarring impacts ity as one of their main properties. that occur when a ra_lroad right-of-way is crossed were One of the more aggressively marketed products is Good- something we just have to live with.That is,I felt that way year's Super Cushion Rubber Railroad Crossings—High- until I saw the warning sign in the accompanying photo- way Type. I inspected two of these installations while they graph. were under construction and some of the photographs A few months ago when this sign was prominently dis- accompanying this column show the material in use. It is played at the Rochelle Avenue-Susquehanna Railroad fabricated from an A.S.T.M. designated elastomer with a grade crossing in the township of Rochelle Park,New Jer- minimum tensile strength of 2,000 p.s.i. The A.S.T.M. sey,I wondered how effective it would be in helping to cor- designation also describes other properties such as hard- rect a problem which had,obviously,rankled the municipal ness,tensile strength and minimum elongation. officials—not to mention local drivers on this heavily trav- Another proprietary product is the one labeled TT which eled roadway—for some time.My camera was not availa- I photographed in situ in western New Jersey and ble the first time I saw the sign and upon returning to the which seemed similar to the Goodyear product. However,I site a few days later I discovered the sign was gone and a am not familiar with the company which manufactured it, construction team was busily at work effecting the major or its specific properties. repair necessary to smooth out the quadruple bump,one at Apparently, all such products come fully equipped to each rail, which had been the source of discomfort to the handle almost any type of crossing,providing corrugated locals for a long time. steel inserts, galvanized drive spikes, washer assemblies It's really questionable just how effective the sign itself and either rubber,or metal,header boards. was in getting somebody to correct the problem,but in this An interesting sidelight to my brief look into this subject case at least a little adverse publicity seemed to have helped is that the railroad and highway people seem to be at odds get the job done. (The sign is currently stored in the town- regarding construction,and other,problems at the railroad- ship's garage.Municipal officials were kind enough to set it highway interface.Highway men complain about the diffi- up in a convenient location so that it could be photo- culties, delays and costs involved with getting improve- graphed.)This incident reminded that I have never written ments made at bumpy crossings.Railroaders don't like the fact that the highways, which usually came after the rail- roads,often dictate what work should be done and how it is to be performed. An interesting problem I learned about AP I from the railroad man I interviewed— and which I never ,jH, �pAIR nr THESE thought about before—is that because of repeated paving 1*[ �`[)x j` operations on approach roads which are necessitated by Cyt f E TO j+ NEGLECT 11i[#U highway maintenance programs, some vertical railroad W Y N + OF THE ���j�/1 alignments, which at one time were absolutely straight in DP EFFORTS r AD. profile, now have a "thank you-ma'am" of their own. In �t' � �/'/"� other words,in order to meet the constantly rising highway OFO `H � ti+ j,�fU grade caused by overlays and resurfacing operations, a y f CL L IU PRECT i noticeable vertical rise and fall now exists along the rails. 1(2 j (} ! Based on recent history,future problems at the railroad %IVNTINiir i highway interface should increase rather than slacken. This is partly due to the fact that more and more welded rails are appearing on some high speed(and other)railroad This sign was effective in getting a bumpy grade crossing lines. In fact, at least one of the accompanying photo- repaired.(see text) graphs shows just such an operation being performed just a few feet away from a highway crossing. While new tech- nology may improve all our lines of communication,it also Correction: The January 1987 Perspective column entitled increases their complexities.This raises the cost of keeping Stormwater Management—Part II should have read Part steel and rubber-wheeled vehicles moving without exces- III. sive chafing of one by the other at the points they interface. 50 Better Roads FEBRUARY 1987 El SDN DR C OSEO FOR REQ, i p - -- - The railroad launches a coun- PLAN ALT ROUE teroffensive,announcinganimmi- i nent repair. a , This photo was taken at the �r4 r, ; instant that the melted, almost ' * white hot steel was entering the mold which formed the weld. A �• fir '^• completed 'joint"is in thefore- F" - ground. Continuous steel mills f300'long are thus formed This photo shows work • ers removing the slag �h i from a weld which is - �- -, .,�,. - ,�4r • ,- still hot. Note com- pleted weld in back of the sledgehammer- J� _ rte' welder at the left _ U , One type of rubber gs ! railroad crossing pad r T ".• •� � w near Hackettstown s +� r ' New� Jersey. . . ff S t °.,r++✓, � �sr,. y .. VV • - .r One type of rubber a railroad crossing pad * y x "- "y, t ����/r�+"D.�' near Hackettstown, !� New Jersey. o ffrcd �4W R PII i. ' ► '� � ( 1. Goodyear rubber railroad AIN �!`f ��1,] } crossing pads being installed �, . aw `7►► in Jersey City,New Jersey. Example of multiple pavement overlays which,over a period wy of many years, has �.� *. raised both the road m grade and the requir- ed railroad grade elevation. Railroads complain about the cost of raising the rails,as a result. a� : ' r This grade crossing was constructed under Interstate Route 80 at Route 17 in New Jersey. It replaced a rubberized system "'� which did not stand up well under heavy traffic.Note Interstate 80 pier to right of the railroad. These are examples of "Old Fashioned"but still effective rail- road grade crossings This is the crossing located in Rochelle Park which was repaired ��� �1�� --- / � partly as a result of the municipal f P.R.campaign to have it improv- ,,, .-; yr. . " { ed. "warning"photo) 16 miles to Jersey City."A little N� 1 maintenance is needed on the -•.-�..,�' �� �""r ...� tin _�: '�; milepost marker. � - .. •.st,rs� �,�a: —J,m.',:.`.. j� �� �..�.._.. �p��.'x. - ,.. �vim.... .sx _ ,.. CITY OF SALEM, OREGON City Hall/555 Liberty St. S.E. Zip Code 97301 COMMUNITY DEVELOPMENT URBAN DEVELOPMENT DIVISION/Room 310 Telephone(503)588-6011 November 19, 1987 Duane Roberts City of Tigard Oregon 13125 S.W. Hall Blvd. P. O. Box 23397 Tigard, OR 97223 Dear Duane: It was nice talking with you recently about your downtown revitalization committee. Enclosed are materials that I would be using in giving your group an overview of our downtown develop- ment program. I look forward to hearing from you again. Sincerely, Richard A. Hayden Urban Development Administrator cwl enclosures SECTION 400 - STATEMENT OF URBAN RENEWAL PLAN OBJEC,'TIVES The primary objectives of the Urban Renewal Plan are to improve the overall appearance, condition, and function of the project area, encourage a variety of river-oriented uses, sustain, and improve the economic vitality of the Central Business District, relieve traffic congestion and railroad conflicts, encourage the use of mass transit, and preserve and create natural green belts along existing waterways. Objectives of the plan more specifically stated are: A. To work with the RDURP's citizens advisory committee and subcommittees for maximum input and evaluation of all development recommendations. B. To maintain the cental core area as the dominant regional retailing and office development center. C. To prevent further fragmentation of the central core retail and office development activity. D. To encourage the development of and provide sites for additional retail uses, including department stores. E. To improve the pedestrian flow and protection for pedestrians between the retail activities, offices, public facilities, parking, and related areas through improvements at street level as well as grade-separated pedestrian ways. F. To increase the net supply of public off-street parking spaces within the RDURA sufficient to meet the needs of the Downtown Parking District and public facilities. G. To encourage private restoration, rehabilitation, development both within and adjacent to the project area through public improvements in the project area. H. To encourage and explore funding methods for the preservation or reuse of historically or architecturally significant buildings in the retail core area. I. To adjust zoning, building codes, fire regulations, and administrative policies, consistent with public safety, to encourage rehabilitation and reuse of existing buildings. J. To protect existing housing stock by encouraging rehabilitation and to encourage the conversion of existing suitable 'structures to residential use in the project area. K. To encourage the development of new housing through the use of legislative measures such as the tax abatement provisions of HB 2343. L. To increase the total housing supply adjoining the retail core. 4 r Ii f M. . To relieve traffic congestion and conflicts arising between cross town traffic and trafficdestinedfor downtown Salem by improving Front Street, minimizing the railroad conflicts through track consolidation and relocation, and encouraging the use of mass transit. N. Improve present public streets and alley:-3 by the installation of new surfacing, curbs, gutters, sidewalks, and the placing of visually integrated street furniture, and to develop and improve the street lighting system. O. To participate in the development of the Willamette Riverfront in the project area in a way that provides an opportunity for a mixture of commercial, residential, public, and other uses compatible with the riverfront, and facilitates safe pedestrian and bicycle movement along the riverfront with linkages to adjoining areas. P. Where necessary, to construct, install, and replace new publicly owned utility systems such as water, storm drains, and sanitary sewers where existing systems are inadequate, undersized, or substandard. Q. Provide good pedestrian and vehicular access to the riverfont. R. To beautify and enhance the streetscape by participating in projects involving public art, landscaping, sidewalk surfacing, signing, street furniture, intersection corner bulbs, weather protection, and related improvements. 5 SECTION 600 - PROJECT ACTIVITIES WHICH MAY BE USED TO ACHIEVE PLAN OBJECTIVES A. The principal aim of the renewal activities is to create a climate for and to encourage the revitalization of a viable and economically sound Central Business District, eliminating traffic congestion and railroad conflicts, and the development of amenities along the east bank of the Willamette River. The type of renewal actions to be undertaken by the Agency in execution of this plan include those actions permissible under Oregon Revised Statutes Chapter 457, these include but are not limited to the following: 1. Assistance in the rehabilitation of deficient structures where such rehabilitation is physically and economically feasible. 2. Acquisition of real property for clearance and sale or lease for redevelopment. 3. Entering into agreements for owner participation in rehabilitation and/or redevelopment. 4. Aid in the relocation of individuals, families, and businesses displaced by renewal actions. The provisions of Section 900E of this Plan shall apply. 5. The renovation and rehabilitation of historic or architecturally significant buildings or structures as identified in the City's historic inventory. 6. Construction and reconstruction of public improvements, including flood control measures, parking facilities, convention facilities, performing arts facilities, public parks and open space, and other facilities which will aid in the economic aesthetic or recreational enhancement of the RDURA. 7. Entering into cooperation agreements with other public agencies. 8. Relocating existing overhead private utilities and installing proposed private utilities underground where feasible. 9. Installation of temporary uses, such as open space, parks, temporary mobile office facilities, and surface parking areas. 'r'RuwtH IN uHi IA I T rN r$1� 5VF"t t loUHT UTI RICpgM thkj��%(jFfAiffl52 DCA TI O GL'P*TY q 'A I� TTI (� F TY) E LV 2O•000VEHIC2N R CREEK HWA 4. A OL �S 19 0 TAN �TYE►+A ERR S D W. SING EXIg TNG CLA BH � PLAZ ARNEDA L 0 UNITS DISTRIBUTIONPTO E AB N —QQ S PATH PHI LE PgRK O COMM RRCC�pA R TR ppT fr1177 �EE IRKI� GARAG MIL REEK A OD#AIN ST �RO T AND A VITY��REA E L C Lp IT ( NEI HBORHppD C MMERCIAL CENTER G D I (q C RE A 1 � T D R VE C SING pq SS T N , A 2SIN RIV Ej` 0 N EqAA ppK�E ;�J, o INT iVI SIj N L C E R P MT E ITAL ON Y B I TT II S E 1 �A N (20 NI tR ( U 1 A I qq (C } �jg S STpN Fi � F S A I 0 H SIDEY H u I NJ 1 S GAR I URBAN RE E L� T B S q HO I PR E T HO N� Y p � L 1 � 1 Eg A yy�� qq ID N I i A P ED LIE LI E M LE R�� T� F I RD L EA� TS 19p j� S VISION ST. 2 T ST R LL E CO IN D ON R gg L SR �qQ SgIN SS IEV1 E K Y S BUSH CHU CH E 9 T L DI �j L p g ��p gy N L�( PO F I U�I —R g U P HO PITAY AREA R ENtW L (�TI II N g EXI TI V TY AR���T . R V P H C EK TYPI AL I N Ctq S Rp A�IqMp HH NPR 1 N dCATTEE TR�A K ELFARE EPARTM C�MIMEFIA U RIVE A L6�3RNN I I �p ZO IN AP AND FIRE ZONE AFTER MAJOR SE E II ENTIFIED WI NNT RRST. 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N S S ATI N °k PO` SURF C10 '1 `T��'" `I� TI J E, `hSTRI U ON LIPnnA ER ( QiQ j N(� •A �`�� I;� � G L ; AT� HIGHWA 4 C VOVI �S `I II i �' ', C ELL 1300 b. �� i N 1I�L CREEK AREA TANiy a D W. �S..�G EXI S a BLEM PLAZ A LEPHQNE ' '^'RU; V TO A `I RF�1N PATH P1 IGLU OA5 ATI ^a�� AIN IT R 5D0 UNIT ITS �A ff11 tt 'RAGE ..L �K �C I A VIT� rt AS I HBORi `n �" iME, 'L. :NTt I� g G I g�G. 4R 1 c 'T [' RLLJ'� ty PSS. LL ggS A A Str I N ,RI. I TIN vvI .I R T i l I HI M ICAL 'IC, P4 A E� ?� `1� �a �. .BRID t' E 1 00 re� iD A, N 120 ,f �' ✓ pT N FI IPA IST p g T g qN�E Fi � FR S 'AF I gN.4 ?P O 114 �' LT �I. ' AlJ "�VS �oj 1 S GARFIE HO �TI UP i ^i .i PRT c t�� �l' , �OIIC�ARY 9A' "I I$�IT MI IS I A gR i L r E ') � � �IAE LI 1 1a. I� ''kL Y1' (, R g ATE ST. 2 R T ST M PM I�Ek r+ STAIN D V SION t' Y . F}' 4 }c O R IN S � � ` ge t, iA '�'q Qo S BUSH C`��Rc i g R U hO PIT. AlAEP CH F, 'tWAL / :.(VITY AD R Pq EXI TI 1 P T I A' j��fj .. ' R 'ESJ' M Hp TC� K CHR��Rp,J PO p P R �' ,�It" A� P DPP NOR EMEKET Ip G I f� INI%' I , I �, ( R gg EAT3RpApFp FIC IG ESL PI�(p T F r XXE " - H P LYGH ZING ppgqFl HWE L V PI V�I W . j�o 1 S �N LESLIE ST. fflN N qj .� 2T A I I W V R IP ' IN' �N EARRO pE IA IK�y O N1A R �j' �" �L I E S XI KING StS qR LL II, �M �� "a�1 ft� QN C� ETA T. A.HIGHCITFfi T H 1 ER [ TR, T1pN BAS i I E H P C�.SA M CC } A B 1 I N E V I' r,. I IU q� F `P N gg g� �V E� A gI NR I� }} E P PI (� j pN �C G C E gI ANS p t" POR ON. M I N L STE W LKW D CH SITS y ,p p CpTTq� gT. IF S ATII N CA� pY P ESpT�LR CApN�W�ApL�K Op M P C A� '�L, ` r�EA HOUR TIL ATI N APITpLSH OP TNG CENTER LIBERTY I�P� I R LI I L N I IA 1 R�.� Sg�.yRAEI�Ly C t� U TI NPA E ( 0 AR •R L1 qpp , �� L18�AR CHjVTWA�Ro IEE 111C GHELTER ANCJAREA Y I B NKIN RMA � N TI pC E pqKI A 2 00 VICLPE NY I_ NDIT �• JyBTI� � ITURI N SI �A T. 1 CA . T WA ER DI TRI UTI p ` H ST. A M A Y'U pN LAN �4 I 1 � F PO � � I I U j G N GH I ANS PPI I R ON. 11A I I N LSTELKW A F D SIT TT IF SAI N CA Y P T AN WALK OIL S MI A $Cp q� gT }p�q Tq�L I'iOUR TIL ATI NCA IT•L SH PPING LATER LIBERTY AAA l.11 A��n/.l ow•Iufl- r_wowfl-c Icnn rwoc% w� . . . . There are no tried and true answers, no single successful formula for revitalizing and stabilizing a downtown area within a city such as Salem. It will take the innovative thinking, the review of details, and long hours of discussion and thought by all . . . . if we are to achieve for our city a truly economical, useful, and esthetically pleasing plan which truly reflects the needs, desires, aspirations and spirit of Salem citizens . . . ." Mayor Vern W. Miller, M.D. The office of Community Development, Housing, and Urban Renewal, of the City of Salem, Oregon. BACKGROUND Few urban areas in the 100,000 population range have The Central Salem Development Program (General ; matched Salem's vigor and success in urban renewal and Neighborhood Renewal Plan) application was filed in housing programs. The experience gained in the 10 early 1967 and approved in January of 1970. A $5 years since the Common Council established itself as million federal grant reservation for the first urban the Urban Renewal Agency is perhaps the City's most renewal project was awarded to the city of Salem. important asset as it approaches the task of revitalizing A General Neighborhood Renewal Plan is described by the 680 acre Central Salem area. HUD's Urban Renewal Handbook as "A preliminary In June 1970, the 22 acre Willamette Redevelopment plan which outlines the urban renewal activities pro- Project was completed. This project allowed for the posed by the GNR area, provides a framework for the expansion of Willamette University into a formerly preparation of Urban Renewal Plan, and indicates deteriorated area, surrounded by the Central Salem generally the land uses, population density, building study area. The 19 acre Hollywood Project is now in coverage, prospective requirements for rehabilitation and execution and will modernize an obsolete neighborhood improvement of property, and any portions of the area commercial complex. In addition to the Central Salem contemplated for clearance and redevelopment." Development Program, the agency has secured a $1 million capital grant reservation for the North Salem Neighborhood Development Program. This program will strengthen the older residential neighborhoods directly north of the Central Salem study area. Concentrated code enforcement projects which include the Ferry Oaks area (406 structures) completed in 1970, and the Richmond area (361 structures) soon to be completed have strengthened otherwise deteriorating neighborhoods bordering the Central Salem study area. Under the U.S. Department of Housing and Urban Developments leased housing program, which makes up the difference between economic rent and the payment capabilities of low income families, 500 units (section 23) are available and an application has been filed for 250 additional units. HUD has approved 248 units of "turnkey" family housing to be built to Housing Authority specifications within a specified budget. An application requesting 200 "turnkey" units for the elderly in the Pringle Creek Redevelopment Project has also been submitted. F �a 46 t ' 3 t 5 3 7 a 9 10 s RENEWAL ACTIVITY AREAS 1. North Salem N.D.P. Project 2."Hollywood Project 3. Central Salem Development Program 4. 'North Mill Creek ' Area 5. River Park Area 6. Pringle Creek Project 7. Willamette OUniversity Project 8. Medical Center Area 9. "Ferry Oaks Conservation Project 10. Richmond Conservation Project TURNKEY HOUSING SITES 20Units on Brush College rd.west of Wallace rd. 30 Units on 6th ave.east of Broadway 3 26 Units on 34th st.north of Silverton rd. 4) 30 Units on Orchard Heights rd, 24'Units on Alameda st.west of 35th ave. © 62 Units (PROPOSED) elderly housing Q7 28 Units on Lee st,east of 25th ® 30 Units on Sunnyside rd.north of Boone rd. ACTIVITY AREAS NEIGHBORHOOD DEVELOPMENT PILOT PROGRAM (non federally financed) I. Faye Wright Neighborhood It. Northgate Neighborhood PUBLIC PARTICIPATION - The success of any downtown revitalization depends on The chairman of the Citizens' Advisory Committee strong leadership and a cooperative attitude between appointed by the City Council and he selected a chair- private investors, the general public and government. man for each of the seven subcommittees. Salem has a tradition of calling upon its citizens to serve The Executive Committee of the Salem Urban Renewal on ad hoc policy-making committees advisory to the Agency's Citizens' Advisory Committee and its subcom- Council. The Council's wide range of responsibilities mittees held more than 120 meetings, and in August make it necessary to delegate some of the work toward 1970, presented a Goals and Objectives report. The reaching consensus on major problems. The record of report contains reports from each of the subcommittees acceptance of committee recommendations encourages and should be read by all those who wish to understand committee members to take their assignments seriously. fully the background for the plan's proposals. A 100 member Citizens Advisory Committee (CAC) Thus, the Central Salem Development Program is the was appointed to guide the work of the Agency staff result of an intensive 18 month effort by Agency and consultants in preparation of the Central Salem Staff and consultants working jointly with the citizens of Salem. The CAC critiqued the preliminary plan in detail, re- quested changes that have been made; and remains ready to support the plan and participate in negotiating the many details that must be worked out to bring the proposals to reality. Public participation in the plan- making process extended far beyond the committee. The staff and consultants sought and were contacted by 1 scores of citizens who have a direct interest in the area. 1 Two well attended public meetings, in addition to many organization meetings, were held to present the plan in its tentative and completed form. Frequent discussions were held with public agencies and private firms whose cooperation is essential to carrying out the plan. Probably the best assurance that interested citizens have been informed is provided by the continuous and accurate coverage in both of Salem's daily newspapers, as well as by television and radio. GOALS AND OBJECTIVES PROBLEMS AND POTENTIALS The goals and objectives set forth by the Citizens' Salem's growth has occurred in all directions, and Advisory Committee spell out the guidelines for keeping Central Salem "on center" is a major problem. developing the program. In most American cities the automobile, outward • Fill-in, intensify and retain existing businesses in the spread and the introduction of shopping centers have area already committed to retail core. Prevent further weakened the central business district. Salem has not fragmentation of core retailing activity. escaped; but with the community's strongest retailers in modern downtown buildings (the State Capitol, • Relieve traffic congestion and conflicts between Willamette University and the major medical center) through traffic and traffic with destinations in Central all within the 680 acre Central Salem study area, the Salem. Make walking and bicycling safer and more opportunities for revitalization are excellent. pleasant. Minimize railroad nuisance; increase the net supply of parking spaces. Traffic congestion on main streets, bridge approaches, and the jojnt use of streets by trains and vehicles has • Eliminate substandard buildings. Make every effort to created problems that must be corrected. The private rehabilitate existing buildings, especially those of car will continue to account for more than 9 out of historical and architectural importance. 10 trips to Central Salem, and despite an adequate total • Protect good housing by requiring urban design stan- number of parking spaces, there are shortages at key dards and minimizing encroachment by incompatible locations. uses. Increase total housing supply, particularly for Occupied retail floor space totals approximately twice low-moderate income persons. the amount found in a major regional shopping center. Professional and general office space is only about one Provide sites for expansion of existing public agencies third the retail total and could fit in one large high-ri and institutions including the State Accident Insurance Fund, a State agency, Marion County, Salem Hospital office building. Total vacancies of nearly 12 percent non-residential floor area indicate a substantial amount and Willamette University. of obsolete space, articular) p , particularly industrial buildings • Take advantage of natural amenities by opening the and office space over stores. More than 90 percent of the city to the river and developing greenways along the vacant space is in the retail core area, and 82 percent of creek. all vacant space is in structures rated "unsound" or • Adjust zoning, building and fire regulations and "rehabilitation questionable". administrative policies as consistent with public Anticipated federal and local funding for renewal safety to encourage attainment of objectives. projects will clear only a small portion of Central Salem for rebuilding. Even if far more money were available, massive clearance is not the answer. Much should be preserved. Many small businesses can afford only low rents for older space, and older, low-priced housing is a resource that cannot be duplicated. Some of Salem's fine historic buildings have been restored; many more can be. C URBAN RENEWAL AGENCY CHAIRMAN VERN W. MILLER M.D., MAYOR CITY OF SALEM Mr. J. W. Tindall Mr. W. R. Heine Mr. E. Stillings Mr. E. B. Page Mr. J. W. Carkin Mr. R. D. Lee Mr. R. E. Lindsey Mr. M. E. Mills Rodney R. Stubbs, Program Director CSDP CITIZENS ADVISORY COMMITTEE Mr. Leo E. Chaffin, Chairman Business Development Community Facilities Historical Structures Mr. S. Compton, Chairman Mr. J. W. Sullivan, Chairman Mr. W. Lindburg,,Chairman Mr. R. C. Burrell Mr. P. Batten Mr. D. Carter Mr. L. Coleman Mr. T. Birr Mr. D. Duniway Mr. C. Dodd Mr. J. Blanchard Mr. T. Golden Miss E. Ebert Mr. D. Carlson Mr. J. Joelson Mr. H. Fox Mr. M. Compton Mr. W. Kaufman Mr. G. Frank Mr. G. Coppage Mr. J. G. Knapp Mr. C. Fyock Mr. J. Faulstitch Mr. C. McClelland Mr. J. L. Johnson Miss H. Fries Mr. D. Peterson Mr. C. Lofgren Mr. P. Gemmell Mr. T. Morrison Mr. L. Kremen Industrial Development Mr. L. Perkins Dr. K. Robertson Mr. V. M. Boon, Chairman Mr. R. Schmidt Mrs. H. S. Shirey Mr. W. Blakley Mr. B. Smith Mr. E. Spencer Mr. J. Dressler Mr. V. Wiscarson Dr. S. D. Wiles Mr. S. Hammer Mr. D. G. Herring Mr. J. Overs Housing Committee Mr. W. G. Paulus Transportation Mr. W. W. Gordon, Chairman Mr. L. Van Kleeck Mr. R. C. Elgin, Chairman Mr. K. Chrisman Building Standards Mrs. P. H. Brydon Mrs. M. Churchill Mr. E. Savage, Chairman Mr. M. Harris Mr. P. Geiser Mr. G. Bartz Mr. G. Kleen Mrs. N. Gormsen Mr. C. Grabenhorst Mr. W. L. Mainwaring Mr. R. Hendrie Mr. C. Hawkes Mr. M. C. Milbank Mr. H. Mattson Mr. W. Hays Mr. U. S. Page Mr. J. McDaniel Mr. J. Hogg Mr. S. Schlesinger Mr. E. Miller Mr. G. Hought Mrs. S. Stanford Mr. O. Skopil Mr. R. L. Jensen Mr. J. Watson Mr. R. Sielicky Mr. E. Salstrom Mrs. E. Swarthout Mrs. E. Sprague Ex-Officio Front Street Pac Mr. A. Loucks Mr. B. Judson, Chairman Capital Planning Commission Mr. E. Boise Mr. H. Brock Mr. J. Heltzel, President Mr. F. Brown Salem Planning Commission Mr. S. Compton Mr. W. P. Carson, Jr. Mr. W. HadleyMr. M. Harris Salem Planning Commission Mr. J. Hogg Mr. J. A. Woodwell Mr. J. Kitzmiller Executive Director Mr. J. Overs Urban Renewal Agency Mr. L. Perkins Mr. E. Roberson Mr. R. S. Moore, City Manager Mr. M. Saffron City of Salem Mr. J. W. Sullivan Mr. B. Vanwyngarden Mr. W. J. Kvarsten, Director Mid Willamette Valley Public Relations Council of Governments Mr. P. Sukalac, Chairman RENEWAL STRATEGY rder to determine how program objectives can be until the late seventies. The traffic studies assume a nev attained with potentially available resources (local and bridge at Pine Street will be constructed as proposed by federal), the renewal budget was estimated and projects the Salem Area Transportation Study (SATS). A Market were selected to create maximum impact. The key Street location, however, would be somewhat more elements of the proposed renewal program are: to advantageous to downtown business. remove blight, to develop more housing adjoining the retail core and to provide better access to the core Presently, vehicular movement on the Willamette River area. Needed trafficway improvements would give bridges is limited by the intersection capacity at peripheral areas high priority for redevelopment even it Commercial Street. The proposed ramps connecting to the reuse market were not strong. Front Street will accommodate about a 25 percent increase in present traffic volume without congestion. The case for redevelopment bordering the core rather The ramps are essential regardless of the timing or than at the center is clear. There is a definite need for location of new Willamette crossings. close-in apartments for downtown employees, the In view of the time required to fund, design, and build elderly and for persons displaced by redevelopment. A new river crossings, it is clear that the Front Street ramps massive federally aided clearance and redevelopment are the only way to relieve congestion during the program for Central Salem would not meet HUD's immediate years ahead. This is critical to the revitaliza- national goals and would only clear land that could be tion of Central Salem. Studies have repeatedly shown difficult to re-sell. The available money will have far that removal of through traffic from shopping streets more impact if used to clear blight on comparatively boosts sales; and in this case it will allow beautification, inexpensive hand adjoining the core, thus stimulating and more convenient parking on Liberty and Commercial v private investment in the retail area. Streets, that otherwise could not be provided unless traffic volumes were reduced. During 1971, the State Highway Commission agreed to participate in a $6.4 TRAFFIC WAYS million dollar Front Street construction program, A better system for handling through traffic is Central provided the project was part of the community's devel- Salem's most pressing need. Currently Liberty and opment program. Construction of this project will be Commercial, the two primary retail streets, are choked initiated by the State Highway Commission in 1975. with cars that interfere with shoppers. This one-way In addition to Front Street, two north-south, one-way couplet is the major north-south through traffic route couplets, will carry through traffic. Twelfth Street providing access to the Center and Marion Street bridges. extended will be northbound north of Court Street The bridges now carry volumes 25 percent over the rated and Capital will be its southbound counterpart. This capacity of the Liberty and Commercial Street inter- and the Thirteenth Street extension south to Bellevue, sections, through which all bridge traffic must pass. By are in accord with recommendations of the Salem Area 1982 traffic crossing the River will increase from the Transportation Study. Between the retail core and the current 32,000 to 53,000 vehicles per day. Capitol Mall, a High-Church, one-way couplet, will The plan proposed that Front Street be developed as a distribute traffic to parking facilities. South of North six lane north-south route. The railroad tracks would be Mill Creek, Church will be curved west to Broadway consolidated and relocated to the west. To draw through to complete the couplet at the north end. traffic to Front Street and to use the full capacity of the Center Street and Marion Street bridges at mid-span, ramps must be built connecting the bridges to Front et. These ramps will accommodate traffic growth Center and Marion Streets will continue to carry the heaviest east-west traffic because they connect with the bridges. The City is studying an improved alignment connecting Marion to Center east of the planning area. The plan calls for two way operation of State Street, with a grade separation under Twelfth Street and the Southern Pacific tracks. Even if the underpass cannot be financed in the near future, the traffic plan should be designed to accommodate a solution of the central area's most severe rail-vehicle conflict. On the assumption that redevelopment will allow major changes in the street pattern south of Trade Street, the plan proposed con- necting Bellevue to Trade Street to form the Pringle Creek Parkway, a handsome, landscaped entrance to downtown from the south and east. This route will distribute traffic to the High-Church, one-way pair and will be needed in any event to serve Willamette University, and new development in the Pringle Creek Activity Area. PARKING PROJECTED TRAFFIC FLOW Short-term parking (less than four hours) should be 1982 established within a block of major destination points. Covered shopper walkways should be provided where 1000 VEHICLES OR LESS possible. The parking plan proposes three garages and an outer ring of lots that can be covered when demand 10000 VEHICLES warrants. The first retail core project is a structure extending along the east side of Commercial Street from Marion, to the south end of Lipman's present 20000 VEHICLES parking lot. Ground floor space would be used for new stores, auto centers, garden shops, and other de- partment store expansion. The 900 stall structure adds 580 spaces in an area of current shortage and future demand. To balance this additonal parking, that would 40000 VEHICLES serve the west side of Liberty Street, a similar structure should be constructed on High Street extending from the old City Hall tower (preserved as a landmark), to the Masonic Building. This will remove some of the - core's worst structures. Part of the ground level could be a weather protected off-street transfer point for the 12 routes of the City-owned bus system. At the southern end of the retail core a 220 space garage is proposed on the site of the parking lot at Ferry and Ic Liberty. The garages will be financed by an assessment � 0' 300' 600' district and should offer free,validation, or nominal , charge parking for short-term users. .I i i co n �, I I � f 0 �I ,--, 15 G000 f fA 10000 ` h j LJ ! .—A — I 16WO 13000 lil;l 1 1 I 16 FERRY ST. i t $8 I •{� '� 1 f l f N s ST. 200 s f I ! J f 14 I � , t _420Q...se rl z z ��'���:�.'r=fi� �x ^�� ?� ` `""� �� sem.K,�' .;`ice`�`' ' '� �. �: 4 � °�° �• ��-' � A parking feasibility and impact study was completed by Development Research Associates(DRA) of San T Francisco on December 1, 1971. Based on the calcula- tions of costs, necessary assessment rates and the impact of these rates, DRA has made the following recommend- ations: • At this time, the Salem Central Area can only support the construction of at most, 1,100 of the 1,720 proposed spaces in the Central Salem Development Plan. • When a maximum assessment rate in the special assessment district equals the current Salem school tax rate, between 1/3 and 1/2 the proposed spaces can be supported assuming no significant growth in assessment base. 1 T RAFFICWA�/i S • Considering the growth which is likely to take place AND PARKING in Central Salem in the next 20 years, possibly the PROPOSALS entire project could be supported using rates no higher than current school tax rates, or $20/$1000 cash value. MAJOR STREET • However, it is important to remember that when these �� lower rates are used, bond payments for the first five Illllllllllilllllll SECONDARY STREET 1 to ten years will have to be made up partially by C general fund monies. Bancroft Bonds must be repaid from general funds if the district defaults, so that RAILROAD relying on surpluses to be generated from the district near the end of the bond term would place greater pressure (on the City treasury) if the expected growth •••••••• PEDESTRIAN AND BIKEWAY does not occur, and the parking districts fail to produce sufficient revenues. PARKING (spaces) • A project of a recommended smaller scale (1,100 or less spaces) would be more likely to bring about GARAGE (spaces) benefits which would exceed costs to individual establishments. • We recommend phasing construction of the parking structures, building no more than 1,100 spaces at this time, possibly constructing the remainder as the assessment base grows. • Since the High Street structure may not be immedi- ately required, the first 1,100 spaces could be placed " into the Commercial Street structure (900 spaces) and the Liberty-Ferry Street structure (220 spaces). 0' 300' 600' 5 o J RELMON ST IIIIIIIIIIIII mr sT. mum r 5� 4 # �•• 3 I IIII o sr PARRISH q � ' —+ JUNIOR HIGH x SCHOOL IIS'I�+IIIIIIII�IIIIIIIISTIIIIIIililllllllll IIIIIIIIIIIIIIIIIIIIIIIiI = _ i W � ■ � W O•• IIIIIIIII IIII —IIIII11111111111IIIII ST IIIIIIIIIIIIIIIIi�llillllllllllllllllilllll (IIIIIIIIIIIIIIIIIIIIIIIIIII Illllllllllllllllllllllitll V IIIIIIIIIIIIIIIIIIIIIIJIIIII Illlliw+«+IIIIIIIIIIIII sTlllllllllllllllllll UIIIIIIIIIIIIIIIIIIIII(�)IIU' �" MARION = � � ♦_ — Jl/// — i n. MARION — — _ SL _ MARION ST. a — J�J m CENTEN ST, CENTEAST. IIIIIIIIIIIIIIIIIIIIIIIIIII= III cHEMExETA IIIIIIIsT lllillllllllll IIIIIIIIIIIIIIIIIIIIIIIIIII=111111111111111111111111111=IIIIIIIICHE ETAlllI III TIIIIIIIIIIIIIIIII IIIIIIIIIIIIIIIIIIIIIillllllllll �I IIIi l y l li t I, 0 _ = i = = = T = • ,_ • 7 sr. IIIIIIIIIIIIIIIIIIIIIIIIIII111111111IIIcouaTIIIIISLIIIIIIIIIIIIIIIIIIIIIIIIIII '.< 3 "' STATE SL _ STATE QST. 71 U •�4•• ~ l _ PRINGIL & CREEK I FERRY f = : WILLAMETTE I t i UNIVERSITY t Y { PR*4GLE ICREEK ••••• ' �•_ _ �WAY „�} "� rt. W _ S' CIVIC ¢ x ¢ t O CENTER 111111OAKIIIIIIIIIIIIIIST e.. l OREGON STATE BLIND SCHOOL i = ;, j St. - MISSION ST a r,' PEDESTRIAN WALK COMMERCIAL 3 LEVEL PARKING PARKING ACCESS NEW COMMERCIAL PEDESTRIAN BRIDGE i , r i PARKING GARAGE • Construction of any single parking structure should A copy of the parking feasability and impact study is not be phased, since building an entire structure at available from the Central Salem Development Office CJ' one time is much less expensive than adding addition- al floors later. This is true of partable and modular Lots along Front and Trade Street will be used construction as well as conventional. mainly by all-day parkers, although many still will park in unrestricted street spaces and walls to their jobs. • To create the demand for monthly parking in the proposed parking structures needed to generate The plan shows the underground mall garage and the revenues to cover operating costs, it may be necessary 800 space Union Street garage proposed by the State. to eliminate unrestricted curb parking and perhaps By 1982 both of these structures and most of the mall some metered parking in the downtown core. area north of Union Street will be needed for the projected 6,350 State employees. Many still will park • We recommend the use of Bancroft Bonds and a east of Twelfth Street. Willamette University will special assessment district with the rate zones. Within continue to provide on-campus parking adequate for this district, the combined assessed value/gross its needs. receipts assessment formula is the most equitable method of collecting revenues. • This method is most fair, because it clearly relates the cost burden of the parking structures to the benefits to be derived. By the assessed value method, businesses closer to the structure pay proportionately more. By the business tax method, those who generate more parking pay proportionately more. Both property , and gross receipts assessment formulas relate charges to ability to pay. } #A # f r ,.xrmr.w 11 RAILROADS AUTO AND TRANSIT *lroad problems have been carefully studied during Despite the dissatisfaction felt by many towards our .partition of the plan for Central Salem. Removal of automobile oriented environment, the plan cannot Trade Street tracks is a community objective that realistically look toward major changes in travel habits should be diligently pursued. However, it should be during the next ten years. Salem's transit system is recognized that because this line now serves Boise superior to most systems maintained by cities of its size. Cascade and West Salem, rerouting the switching Buses cannot hope to attract enough riders to have a movements off Trade Street may require extended significant impact on traffic and parking requirements. negotiations. Salem not delay redevelopment in the Bicycle usage should be encouraged, but bicycle tran- Trade Street corridor while waiting for the rail issue sportation is likely to account for a very small percent- to be settled. The plan shows the track relocated to age of the central areas mode of travel. Wide streets the south side of the street. that carry little traffic will be particulary suitable for The major railroad relocation proposal of the plan is a system of bike-ways. for consolidation and relocation of the Burlington Northern and Southern Pacific tracks to the west side of the widened and realigned Front Street. The Burlington Northern freight station would be removed and a new spur from the south of Boise Cascade Container Division would greatly reduce rail clutter along the riverfront. Removal of warehouses at the north end of the planning area would be accompanied 1 by removal of the Broadway spur. i � Y�.. f 4 , •, r RETAIL Salem's retail core is anchored b constructed, high Y several recently addition t g quality, department stores. In At the present time there is adequate space wit he consultants have found that Salem's core area to downtown is present) allow fora 33%increase in retail floor hin the the com Y capturing approximate) space and a similar increase in short term community's retail buyin y 35%of facilities. If needed that other co g power. This is unique in , additional parking communities of comparable size only could be provided within new parking and floor s between 14%and 16 Y capture pace Of the retail buying consultants have recommended structures. The area bounded by Marion Y g power• The mmended that re Streets, to � Church, Trade, and Front through traffic the removal of together with the provision for covered contains sufficient s Capitol Shopping Center, Walkways between pedestrian pace for as street crossings, parking and shops the narrowing of retail development, much pedestrian oriented g and the p in the next 10 ent, as the core can ex scapi will make t planting Of generous land- sufficient This is assuming that aotrtongct he shopping area more at revitalization and Pedestrian oriented. To further strengthen the program takes place. downtown area; owners, tenants, and merchants must join forces in order to of Outlyin meet the merchandising strengths g shopping centers. 1. SALEM PLAZA PAYLESS s s e a METER AND FRANK PARKING GARAGE(800 CARS) o S PLAZA PEDESTRIAN ALLEY BRIDGE cErTE PENNY'S O CITY HALL cHErE CROSSWALK MARKING °m ni PARKING GARAGE(600 CARS) RUBENSTEIN'S b� 9 Q( CANOPIES LIPMAN'S ju MASONIC TEMPLE J . NEWBERRY POCKET PARK c . T. O'i v Q V V RT MILLER'S SE SPECIAL LIGHTING STATE ST. 8 PARKING GARAGE(220 CARS) 9 FERRY MARION HOTEL A `- F flpj� K. okrN RETA,L CORE AREA OFFICES HOTEL 'MOTEL AND CONFERENCE Offices, particularly banks and other financial The City of Salem is the home of the State Capitol and institutions will continue to locate both in the retail many State offices. This, coupled with Salem's central core and its fringes. In light of new expansion, location in the Willamette Valley indicates a favorable however, the demand for older office space over stores, future for hotel, motel and conference facilities. The which is characteristic of downtown Salem, will plan envisions the construction of a new motel in continue to be weak. Building costs, prevailing rents, the Central Salem area, with adequate hotel, motel and and other economic factors suggest that private convention facilities to meet local needs in the highrise offices will be built during the planning period forseeable future. The extensive damage of the 210 room only by major tenant investors who wish to enhance Marion Motor Hotel by fire in November, 1971 and their image. In addition, to these types of developments, the future removal of the Imperial "400", a 48 room motel which are usually difficult to predict, the consultants located in the Pringle Creek Urban Renewal Project have projected that ample space exists to provide for an has substantially increased the potential for new motel average increase of 20,000 square feet of office space facilities in the Central Salem area. per year for the next 10 years. It is anticipated that the majority of offices will locate between the retail core and the Capitol Mall. AUTO SALES AND SERVICE Central Salem is fortunate in having a strong group of auto dealerships, which include several in very attractive structures. The consultants have recommended an 80% increase in auto oriented uses. These may include new and used car dealerships, automotive parts and supply houses, tire services and auto accessory facilities. In addition, a sufficient amount of expansion space has been projected to meet the needs of existing establishments, and for several new or relocating dealerships. Uses incompatible with the auto center theme could be relocated by the renewal process. rr r � ^ wa•rwti"�f mp 4 ;ji i 4 �' :;,k F t 2 s I r 4 x, +yam lM »+� + 4"'•'S:*n.. ""£S ,.."�r+.."�Mi1 " � .�.C^:+�,! � ��� c-f`1Y ..« �` l! iF � j � � .;M �� , fix. �.. -y.,.ww,>..,. +�..e 1. - •yK 1.• ~ 1,0 'k; ""' '^. +..s< �. � s .+ �*' �,., y • �, +r•' i 'EN SPACE Central Salem is not lacking in open green (or poten- tially green) space, but much of it is undeveloped. The Capitol Mall, Bush's Pasture Park, Willamette University, the new Civic Center, and Marion Square are important elements in the City's Open Space Program. Much of the Pringle and North Mill Creek frontage and all of the Willamette River bank has been ignored or misused. These streamsides should be made accessible to the public. Design solutions will be carried further, but their general emphasis will be on quality rather than quantity of open space because downtown's character should be urban, not suburban; and it must be noted that open space budgets will always be smaller than desired. The plan proposes a riverfront park bordered by apartments west of the retail core and a "window" to the river opposite the Civic Center. Wide, now drab streets through the core are potential "people orientated" open space as well as traffic carriers. THE CAPITOL MALL The Capitol Mall concept that has been developed by t� state during the past few years, is a worthy physical expression of the value Oregonians attach to their State Government. The States newly completed mall property acquisition program is an example of farsighted planning. It is essential that the City of Salem maintain vigilant endorsement of the States policy to keep all State headquarters on the mall. It is important, however, to point out that there are certain State functions that cannot feasibly locate on the mall. Vehicles and main- tenance storage areas, and other outdoor large land demand facilities can operate more efficiently on outlying sites that have more room for future expansion needs. The State Highway Department a major downtown employer, should remain on the Capitol Mall. The Highway Department received funding authority in 1971 to construct a new office building. Sites on the mall offer many opportunities for centralizing this important unit of State Government. The plan proposes sufficient off-street parking, including State parking structures, to serve anticipated Capitol Mall construction for the next 10 years. After that, p additional parking facilities within or east of the mall will be needed. The 1973 legislature should provide a budget to begin construction of these important facilities. CAPITOL MALL i P RRI Y J NIO IG S HO aez� e i PROPOSED STATE EMPLOYMENT DIVISION 9b . PROPOSED STATE OFFICE BUILDING i e GARFIELD SCHOOL SITE _ QSif W -1[ Z I I -0e - _ o PARKING GARAGE(800 CARS) CAPITOL SHOPPING CENTER ( PROPOSED SUPREME COURT Ll❑ . STATE HIGHWAY CENTER ST. N ST.JOSEPH'S SCHOOL _ PARKING UNDER(840 CARS) LABOR AND INDUSTRY PUBLIC SERVICES STATE LIBRARY �' I CAPITOL BUILDING •- I RE A ST. NE I .f ■ COURT ST, NE O` V � 0 �\ CAPITOL STATE ST. i4 L �+ CAPITOL MALL AREA WILLAMETTE UNIVERSITY Willamette University is currently restudying its academic plan, and is projecting an enrollment increase of approximately 50%during the next decade. The plan indicates expansion west to meet with the alignment of the Pringle Creek Parkway. Most of the expansion area will be used to accommodate the Graduate School of Administration and additional parking. Willamette should receive a high priority in this consideration. This will be one of the final opportunities 1 for campus expansion during the next ten years. �1 I I Z STATE ST. I: NIV RSITYp (.--- FERRY ST. TRADE ST. BIKE AND PEDESTRIAN TRAIL 4 PERC MILL ST. O I'y i PROPOSED W.U.HOUSING 0 BICYCLE AND PEDESTRIAN TRAIL —* _ WILLAMETTE CLINIC SOUTH BOUNDARY e � CLINIC PEDESTRIAN BRIDGE PARKING GARAGE(1200 CARS) GARDEN APARTMENTS(195 UNITS) i _ B � x WINTER STREET HOSPITAL WALKWAYS i NEW CLINICS a PLAYYARD CLINICS NEIGHBORHOOD COMMERCIAL CENTER CONVALESCENT HOSPITAL BUSH SCHOOL MEDICAL CENTER WILLAMETTE UNIVERSITY AREA PUBLIC SCHOOLS OTHER INSTITUTIONS Parrish Junior High School located at the north east There has been some discussion within State Governm( ` corner of the planning area will continue to serve a concerning the possible relocation of the Oregon Blind large student population within walking distance of the School. The site, if vacated by the State, would make an school, as the neighborhood to the east is upgraded by excellent location for a Human Resources Center or the North Salem Neighborhood Development Program. other major development. The Mid-Willamette Valley The already inadequate site (four acres versus the States Council of Governments has been requested to make a standard of 22 acres) will be further increased by the study of the need for a Human Resources Center to extension of the site south of Lambertson Street, serve regional needs. providing a total of nine acres for combined school and community park facilities. This would not occur until the 12th Street bypass is built as recommended by the Salem Area Transportation Study. The bypass may necessitate the acquisition of houses along the east side of this neighborhood. Garfield Elementary School is obsolete by every standard and may experience a declining child population within walking distance. It is recommended that this site be vacated and sold for office use. Bush School, located at the south end of the planning area, will become increasingly distant from the student population it serves. The relocation of Bush School would further strain construction funds and current school budgets. ? 11 ti t ..p N v� r t�z a e+S MOVED } p 1 0 3 _ ally a tY NUFACTURING AND WAREHOUSE DISTRIBUTION Many warehouse enterprises have deserted their Trade Street sites. Owners of the larger warehouse concerns near the north boundary of the planning area are ready to sell. Building contractors and suppliers have already begun to select sites north of the study area along the Liberty and Commercial Street couplet. Salem's single largest year-round manufacturing industry (Boise Cascade Paper Division), is firmly rooted in its present downtown location. It represents a S 15 million investment and employs nearly 600 persons. A portion of the plant is more than 50 years old, but substantial additions have been made and large expenditures are in progress to comply with current water and air pollution standards. Since neither private nor public action to relocate Boise Cascade appears economically feasible, the plan must accept the plant. But, at the same time, the plan supports the best performance standards that the -npany can reasonably meet in air and water ality standards. HOUSING The Central Salem Planning area contains 1,530 Occupants of downtown housing units will spend a housing units. Of these units, an estimated 400 are large percentage of their income in the core area. In probably not feasible to rehabilitate. A major portion addition, these central area tenants will be pedestrian of these substandard structures will be removed by oriented, occupying fewer downtown parking spaces. private and public development programs. This A majority of the downtown apartments will serve combined with a probably 10 year loss to non-resi- singles, young marrieds, and senior citizens. These dential uses will reduce the existing housing supply to groups seldom find adequate housing in the central an estimated 450 units. During the next ten year area of communities the size of Salem. Because of the period, approximately 1,000 displaced families will growing demands for apartments and their dollar be in need of replacement housing. Many of these are return to developer and comminity, apartment house low to moderate income families and unable to compete development can replace blight far more quickly than for adequate housing in the current market. other uses. The consultants have found that a strong demand for moderately priced apartments exists in Central Salem. The plan proposes a program of gradual change in the neighborhood bordering north Mill Creek along Church They estimate a need for ISO units per year, for the and Cottage Streets. It is suggested that obsolete single next ten years. In addition, the consultants have family structures be replaced by medium density suggested the construction of land and moderate income housing, utilizing federal assistance. These apartments. Those small older homes extending north, i housing units would be primarily for the community's from Mill Creek to Market Street, beyond the planning senior citizens. Close-in housing will insure that those area boundary, are recognized as a vital resource to the community, and should be protected as such. If this persons who are unable to commute to the central resource is not preserved, the City of Salem will be C' area, and those who would prefer to live in the central faced with the need to provide more moderate and 1 area would have a home within walking distance of income housing. work and shopping. I I 1 APARTMENT SITES r_41e site located immediately north of Pringle e Park is from the existence of .he other, but success will depend proposed for new apartments. This site is close to on an initial project large enough to transform the Willamette University, State offices, and many high present character of the area. quality homes in the vicinity of Fry Hill. Due to the location of this site, consultants estimate a demand for The largest area to be developed among the four the construction of approximately 225 apartment units. apartment complexes proposed could be located on 29 acres along Mill Creek west of Broadway. It is Another proposed apartment site is located east of the estimated that this area will support approximately Memorial Unit of the Salem Hospital. This site would 875 units. Currently the site is occupied by packing accommodate up to 240 units, depending on the amount plants and largf, ownership warehouses. The desirability of land available after hospital and medical needs are of creekside apartments near downtown, and its met. This location would be particularly attractive to unsuitability for industrial use, call for a program of Willamette University students and staff. orderly changes regarding the use of these lands. Central Salem redevelopment will minimize hardship Due to the desirability of waterfront living, the for present residents, because the Renewal Agency, consultants have suggested the construction of apart- unlike the private developer, is required to provide ment units along the Willamette River front. Waterfront replacement housing for those persons displaced by oriented apartments have great popularity among direct public action. Further, the plan envisions a total younger citizens. Skilled design, perhaps using somewhat of 1,950 housing units in Central Salem (a net increase higher densities can create both a public park and of 420 over existing units). Many of the new apartments r attractive apartment neighborhood. Each will benefit can be built before the removal of substandard housing structures. PRINGLE CREEK ACTIVITY AREA- The first priority renewal project is located in the � Pringle Creek Area and will remove Central Salem's worst blight and will provide a large site for new apartments. There will be several acres for the expansion of Willamette University, a site for the State Accident Insurance Fund (SAIF) Building and public parking structure. The Mill Race will be restored as an open stream, in cooperation with the Boise Cascade Corporation. Bellevue Street realigned and connected to Ferry and Trade Streets will form the Pringle Creek Parkway, offering an attractive new entrance to Central Salem. TRADE STREET railroad u 711F railroad „„ Pliral'♦<LLal dlatlitntl 11:i1 ittl lllltRlnll lot Cl) _ �: grade r U) W v MT� _ ^� J = Pedestrian k to housing V 1 OC3 tti TYPICAL SECTION MILLRACE LINEAR PARK . BOISE CASCADE CONTAINER DIVISION STATE COMPUTER CENTER_ BOISE CASCADE CHIP STORAGE FACILITIES AND B.P.O.E. PROPOSED YEAST PLANT METHODIST CHURCH LL 5 RESTORED MILLRACE AND PARK J STATE ST. RELOCATED TRACK FIRE STATION EGRESS 9 9 SALEM CLINIC ppg 9 al ©. A - Po o Y.W.C.A. `— �8 PACIFIC NORTHWEST BELL ax� WILLAMETTE UNIVERSITY 4 f EXPANSION x Y O i� m GARDEN APARTMENTS (210UNITS) ( 0 ® PRINGLE CREEK PARKWAY o m 0. WELFARE DEPARTMENT » EuvuE ST.BOY SCOUT HALL Al" APARTMENTS IV a BB x PAR I�`llj{ W T 7 117 U 1� w ~ 0- f f[ - cW r W > = MEDICAL OFFICES E '' SAIF OFFICE BUILDING IE _ SOUTH MILL CREEK ° - PARKING GARAGE of 0 (500CARS) BOISE CASCADE PAPER DIVISION OFFICES RIVER VIEW PARK(3.1 ACRES) PGE POSSIBLE COUNTY FRY HILL AREA OFFICE BUILDING PRINGLE CREEK ACTIVITY AREA RIVER PARK ACTIVITY AREA The second priority activity area, to proceed in conjunction with construction of the bridge ramps and Front Street, will unite the retail core and the river. A mixture of substandard railroad buildings and houses will be replaced by a riverfront park and a site for a major motel and several apartments and townhouses on the riverfront. The eastword extension of the project to Liberty Street will rehabilitate or remove obsolete buildings on Commercial Street and will make sites available for new stores and or large parking structures. N e e GARDEN APARTMENTS(200 UNITS) a BIKE AND PEDESTRIAN TRAILS LINEAL PARK RIVERFRONT APARTMENTS(340 UNITS) e q 6 20 o e u • IVISION ST. J I I CONSOLIDATED AND RELOCATED TRACK mom ELDERLY HOUSING(200 UNITS) ANION 5T. e e O O 1 4 ~ O 8❑ TENNIS NEW BRIDGE RAMPS RIVERFRONT PARK(17 ACRES) PARKING GARAGE(800 MTE ST. CARS) POOL t f ° 0 KETA ST. u RESTAURANT MARINA MOTEL i rN RIVER PARK AREA NORTH MILL CREEK ACTIVITY AREA _The northwest corner of the study area is occupied mainly by obsolete vacant or underused warehouses and packing plants. The creekside and riverfront setting makes this a desirable location for garden apartments; when a large enough area can be cleared to completely change the environment. An historical park along the creek on Liberty Street would include Karr's Tavern, formerly the State Treasury, and could accommodate historic buildings that might be moved to the site from other locations in the study area where clearance is necessary. The availability of federal funds will determine the extent of this and subsequent renewal programs in Central Salem. r .1t 4, � 7 PATH PATH OVERLOOK MILL CREEK-TYPICAL NORTH MILL CREEK — �— •SCI: :� — 0 lo '•1�. V��o.�iA� �� . j !, •7■�:-, • •..fie:.a �E� � ty � ■ �•i. `l.mss {r�+:�r:• ', E}��•�••'��A���i�-p'•/�•,' !-' C r. ••F��� � ys'� of:.r : , � � .�� •�`�° °tib r �_;! jIL� I°:�'/II ° • • ■ s Fc o J €°oto' � A7 •,� I :f� �%' •` �' .. � %• .N '� � 0■�1' `oa ��•�e •II. "� � ° e°•Ip+ a r�,. �>: ;Fa6'�e•°�ol�� ' Q'`^�r•`,,r. �e■J s=aL!" -o eoe. � F : H flBe .; e 1• .�•��-��e °-- �••r1': iy s j�7r al / e i`�+_�� ,` ! ___ .:.'k•C del: —_ __ - __ `es�w:� 1 '.''11�'•��� •�•. Pat Nis DEVELOPMENT REGULATIONS PHASING AND FINANCING The program includes specific recommendations for Severe blight and a ready market for reuse give the changes in local codes and administrative practices Pringle Creek Urban Renewal Project first priority. to stimulate improvement. These include: Renewal activity in the River Park Area should be started as soon after the Pringle Creek Project is • As a part of the Central Salem Development underway as possible; but it cannot be completed Program, a professional group retained by the until the Oregon State Highway Department constructs Agency will be responsible for all design review. the bridge ramps and the Burlington Northern Rail- • Revision of the parking standards in Central Salem can relocate its tracks. based on survey results that justify current require- Front Street and the bridge ramps must be completed ments. Those developers who participate in a before traffic capacity on Liberty and Commercial parking assessment district should receive a waiver Streets can be reduced by sidewalk widenings, parking of local parking requirements on the basis that the bays, landscaping and canopies that are important to district will provide adequate parking. improvement of the shopping environment in the retail • Reduction in the area designated Fire Zone I to core. Completion of a new Willamette River crossing, conform to the proposed land use pattern and for which the location and financing are not yet allow construction of apartments that are determined, will be no earlier than the late 1970's. This economically feasible. factor further reinforces the need to add ramps to the existing bridges as quickly as possible. • More liberal administration of building code provisions relating to remodeling where fire hazard The City is preparing a phased program of parking is not increased. structure financing and construction in Central Salem. Success will depend on support from businesses and rP' property owners directly benefited. I��c Although project boundaries may include portions of the retail core, a project centered in this high value area would quickly exhaust the public budget and strain private funds. The primary cause for this strain, is that costly remodeling would not necessarily allow for a significant rise in rents after rehabilitation. This simply means a high development expense with little cash return. Further, most of the beautification costs, and all of the parking facilities will be paid for by those benefited properties, whether or not they are within a federally assisted project. Federal aid can better benefit the retail core by providing adequate sites for parking facilities, improving access, and strengthening the entire caricature of Central Salem. The latter can best be accomplished by retaining City, County, State and private offices in central locations. C Central Salem belongs to the entire community, and should reflect its full range of activity. Thus the Central Salem Plan seeks to increase retail sales, to attract new businesses, to provide better housing, to preserve historic structures, and to expand civic, cultural and recreational facilities. The program is comparatively short-range. All redevelopment projects within the area are required by federal regulation to start within an 8 year period. Yet the Plan recognizes that nearly all of its proposals will have an impact leasing 50 years or longer. The Urban Renewal staff and consultants are keenly aware of the need to begin construction as soon as possible. This is necessary t not only to secure investor confidence but also to rally support from within the community. Consideration will be given to assisting Willamette University and the Winter Street Hospital in their expansion needs,and to building new apartment housing in various sectors of the planning area. Such a program will insure Salem's role as the hub of the Mid- Valley region. This resume describes the plan for the Central Salem Development Program as it exists to date. In the near future, urban design concepts, economic studies, and project boundaries will be drawn by the consultants. The planning work for this program is being undertaken through the U.S. Department of Housing and Urban Development's General Neighborhood Renewal Plan (GNRP), now officially identified by the Citizens' Advisory Committee as the Central Salem Development Program. With the implementation of this program, every Salem citizen will have an opportunity to take part in the planning, restoration, and development of the downtown area. Salem citizens will not only share in the development of downtown, but will have the opportunity to help make Salem a better place in which to live. CITY COUNCIL/URBAN RENEWAL AGENCY Vern W. Miller, M.D., Mayor Mr. Walter R. Heine Mr. James W. Tindall Mr. Emerson B. Page Mr. Edwin Stillings Mr. Richard D. Lee Mr. J. Warren Carkin Mr. Meredith E. Mills Mr. Robert E. Lindsey CITIZENS ADVISORY COMMITTEE Mr. Gerald F. Bartz Mr. Peter H. Geiser Mr. M. Chapin Milbank Dr. Peter J. Batten Mr. Paul M. Gemmell Mr. Ernest H. Miller Mr. Timothy B. Birr Mr. Thomas C. Golden Mr. Ted E. Morrison Mr. William E. Blakley Mr. Wayne W. Gordon Mr. Donald J. Overs Mr. James F. Blanchard Mrs. Nancy Gormsen Mr. Urlin S. Page Mr. Evan B. Boise Mr. Coburn L. Grabenhorst Mr. William G. Paulus Mr. Verne M. Boon Mr. Wayne E. Hadley Mr. Louis C. Perkins Mr. Harland B. Brock Mr. Stanley N. Hammer Mr. Donald B. Peterson Mr. Frank A. Brown Mr. Milo C. Harris Mr. Earl E. Roberson Mrs. Edith Brydon Mr. Charles E. Hawkes Dr. Keith A. Robertson Mr. Robert C. Burrell Mr. William Hays Mr. Morris H. Saffron Mr. Dee K. Carlson Mr. Richard L. Hendrie Mr. Edward B. Salstrom Mr. Douglas A. Carter Mr. Donald G. Herring Mr. Ernest J. Savage Mr. Leo E. Chaffin Mr. James C. Hogg Mr. Sidney W. Schlesinger Mr. Keith S. Chrisman Mr. Glenn J. Hought Mr. Richard J. Schmidt Mrs. Marian Churchill Mr. Ronald L. Jensen Mrs. Helen S. Shirey Mr. Lee Coleman Mr. John R. Joelson Mr. Roger M. Sielicky Mr. Michael S. Compton Mr. James L. Johnson Mr. Otto R. Skopil Mr. Stuart H. Compton Mr. Burch R. Judson Mr. Bob L. Smith Mr. George Coppage Mr. William F. Kaufman Mr. Edward D. Spencer Mr. Charles C. Dodd Mr. John W. Kitzmiller Mrs. Esther Sprague Mr. Jack A. Dressler Dr. Glenn W. Kleen Mrs. Susanne Stanford Mr. David C. Duniway Mr. J. Gardner Knapp Mr. Peter G. Sukalac Miss Eloise Q. Ebert Mr. Leonard L. Kremen Mr. J. Wesley Sullivan Mr. Robert C. Elgin Mr. William H. Lindburg Mrs. Ellen Swarthout Mr. James R. Faulstitch Mr. Cornelius W. Lofgren Mr. Leonard A. Van Kleek Mr. Harvey H. Fox Mr. William L. Mainwaring Mr. Bruce Vanwyngarden Mr. Gerald W. Frank Mr. Henry C. Mattson Mr. Jack R. Watson Miss Hilda A. Fries Mr. Chad McClellland Dr. Sylvester D. Wiles Mr. Charles W. Fyock Mr. John McDaniel Mr. Vernon Wiscarson TECHNICAL ADVISORY COMMITTEE Executive Committee PARKS Mr. Robert S. Moore, Chairman, City Mr. George Price, Director Mr. Leo E. Chaffin, Gen. Chairman, CAC Mr. Russ Richards, Park Planner Mr. James A. Woodwell, Exec. Director, URA Mr. William Neifert, Park Superintendent Mr. Harlan W. Mann, Ass't Exec. Director, URA PLANNING Mr. William Juza, City Attorney, City Mr. W. J. Kvarsten, Director Mr. W. J. Kvarsten, Director, COG Mr. R. David MacDonald Mr. Rodney R. Stubbs, Program Director, CSDP Mrs. Ann Mounteer Mrs. Linda Lund POLICE Departments of the City of Salem Mr. Ben Myers, Chief PUBLIC WORKS ADMINISTRATIVE Mr. B. T. VanWormer, Director Mr. Robert Briscoe,Asst City Mgr. Mr. Walter M. Friday, City Bldg, Engr. Mr. Russell Abolt, Ass't to the City Mgr. Mr. David Vargas, City Engineer Mr. Robert Grewell, Director of Finance Mr. William Stark, Traffic Engineer Mr. Al Hampton, Transit Supervisor FIRE UTILITIES Mr. Wesley E. Baker, Chief Mr. John Geren, Director Mr. Clinton Hart, Fire Marshal Mr. Joel Wesselman, Sanitary Engineer Ae a� or �` J P`PP � ��° P�� 611,5 e QxxpGG�p ,�c��JJOp°�JC, a�`c OO PSN, Qt�<,�Q'gG�P�JQ'PQ P cera CO 5 OQ� k,Q'gGP� O� OQ—P G �(?CO ��� P G G� Q� j The preparation of this report was financed in part through Federal Assistance from the Department o{ Housing and Urban Development.