NORTH DOWNTOWN NEIGHBORHOOD PLAN: REVISIONING THE O’BRIEN SITE Dara Haagens Amanda Morgan

NORTH DOWNTOWN NEIGHBORHOOD PLAN:
REVISIONING THE O’BRIEN SITE
Dara Haagens
Amanda Morgan
Andrew Rogerson
Joshua Havener
Madeline Phillips
14 March 2011
Table of Contents
1.
2.
3.
4.
5.
Introduction
Site Analysis
Vision & Goals
Plan Review
Recommendations
• Transportation
• Zoning
• Land Use Mix
• Urban Design
6. Policy Changes
7. Conclusion
North Downtown Neighborhood
Introduction
Founded in 1842, Salem, Oregon provides an example of a prototypical American
city in terms of its development over time. Salem has served primarily as the
political capital of the state, but its economic identity also thrived on industry
in the 1920s and 1930s, in large part because of its beneficial proximity to the
Willamette River. As industry grew, so did the city’s downtown, along with
population and pollution. The growing availability, popularity, and subsidized
convenience of the automobile contributed to the development of suburbs, and
Salem residents began to abandon the downtown core. Sprawl development arose
as a consequence of the declining downtown and the corresponding automobile
boom. The O’Brien site in Salem gives us a local opportunity to investigate these
broad urban development patterns that were occurring across the country. In
this way, Salem provides a lens through which we can begin to understand the
implications of land use decisions, urban planning, and real estate development.
Site Analysis
The O’Brien Site, a 3-4 acre parcel located within the boundaries of the 290-acre Riverfront
Downtown Urban Renewal Area, is a complex site with a number of challenges and
opportunities. Immediately bounded by Commercial Street to the west, Liberty Street to
the east, Division Street to the south, and Mill Creek to the north, the site is currently home
to the O’Brien Autogroup, and is consequently composed primarily of paved parking lots
with a few low-density commercial structures.
It is clear that the automobile directed development in the site area. Unlike in the
downtown, which is immediately adjacent, the buildings surrounding the O’Brien site
are dispersed. With few exceptions, the buildings do not define the street edge. Buildings
are pushed back into the interior of the block and/or surface parking disrupts frontages.
Available parking supply currently exceeds demand; an underused parking garage, Marion
Parkade, languishes to the south while street and lot parking remains plentiful. Moreover,
the main arterials (Commercial and Liberty Streets) discourage pedestrian use with their
noise, smell, high vehicular traffic volumes, scale, and lack of green buffers and crosswalks.
Situated just north of Salem’s historic district, the O’Brien site acts as a gateway to
the downtown and has a history of light industrial and live/work development. These
few blocks alone can be viewed as a microcosm of the greater trends in Salem’s urban
development. Tax maps of the area show small plats of land appropriate to such uses
interspersed among much larger conglomerations of land that house more current,
automobile-oriented development (City of Salem 2009).
Land that was once subdivided for use by a variety of private, small businesses was
gradually purchased and combined for use by larger companies. The structure of the
first plats included a public alley to the rear that was (and still could be) used to service
the individual businesses abutting each side. But the public alley dead ends at Mill Creek
and is now surrounded on both sides by the a single company—the O’Brien Autogroup
– creating a virtually private right of way that only provides circulation through O’Brien’s
parking lots.
Overall, there is a lack of infill development throughout the area. Where smaller plats of
land overturn, rather than infilling with buildings of similar size in order to maintain the
scale and density of the area, the development trended towards combining these plats
into one large plat. This process accounts for larger drive-and-park businesses like the
O’Brien site, which encompasses the majority of three city blocks, or 8..4 acres. The only
lots that retain their original size and conditions are those receiving historical designation,
as at the corner of Union Street and Commercial Street. As a result of this process of
obtaining multiple tracts of land for the purpose of a single business, Salem’s land area
North Downtown Neighborhood
3
The City of Salem has envisioned the future of the North Downtown in many different ways. The O’Brien site is overlayed by both
the Central Business District and the Broadway/High Street Overlay (Left). The Comprehensive Plan further details ideas regarding
Commercial Office space abutting higher density housing, such as Multi-Family Residential to the north (Right). It is this complex
layering of overlays and competing visions that may have discouraged development in the North Downtown area.
4
North Downtown Neighborhood
must naturally expand to provide sufficient growing room.
Traditionally, annexing residential development to the edge of the city and allowing
commercial businesses to continue to expand within (and outside of ) downtown
have accommodated this pattern of growth. However, in the spirit of Oregon’s
unique land use planning processes (in particular, the tool of the Urban Growth
Boundary), the intention should be to take advantage of infill opportunities as a
means of making more efficient use of available land. If destinations and housing are
grouped, services and infrastructure can be efficiently consolidated, and more land
will ultimately be preserved.
Surrounding the O’Brien site are a number of desirable amenities, including Marion
Square Park, Union Street Railroad Bridge and associated paths, and the Willamette
River to the west; major shopping and dining attractions (and free parking) to the
south; and Chemeketa Community College (and its business incubator program) to
the east.
STRENGTHS
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Despite the proximity of so many nearby amenities, and a WalkScore of 95/100
(designating the site and its environs a so-called “Walker’s Paradise”) actual bicycle/
pedestrian connectivity around the site is insufficient. Bike lanes are discontinuous
on nearby Broadway, and are nonexistent on significant portions of Liberty and
Commercial Streets. Crossings are dangerous and clearly favor the heavy automobile
traffic. It should be expected that increased pedestrian and bicycle traffic in response
to the Union Street Bridge will require additional active transit infrastructure in
surrounding areas in the future.
Another challenge is the legacy of haphazard development in the area, resulting in
a gentleman’s club, a three-story personal storage warehouse, a tavern, multi-family
housing, single-family housing, and commercial and office uses occurring within (or
proximate to) the boundaries of the site. Although the site and its adjacencies are
composed of primarily commercial properties, some single-family residences are
part of the mix.
Housing stock observed near the site appears to be of low to moderate quality,
with a preponderance of below-market housing prices recorded in February 2011.
In addition, low tenancy rates were observed in site area storefronts, with many
“For Rent” signs noted. Some of these vacancies may be attributable to the poor
quality of the available building stock, in addition to connectivity and accessibility
issues (and, of course, the current economic climate.) District property owners
may take advantage of the City of Salem’s Riverfront Development Urban Renewal
Area funding, and in particular, its Tool Box Program, to make critical storefront
Mill Creek
Union Street
Pedestrian Bridge
Marion Park
Riverfront Park
Downtown
shopping district
WEAKNESSES
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•
•
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Commercial Street
Dangerous
intersections
Site and Creek
contamination
Lack of amenities
North Downtown Neighborhood
5
improvements which could help reverse this trend of low area occupancy.
OPPORTUNITIES
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Develop East/West
connections
Develop North/
South connections
Site repair
Restore + Improve
Mill Creek
Enhance bicycle
connectivity
Provide workforce
housing
An environmental site assessment should be explored, given that the site has historically
been used for industrial, light industrial, and machine-shop purposes relating to the
nearby railyards and the river, and is currently used for automobile sales and service. Mill
Creek will also require some degree of remediation, but will be a major asset to the site
when enhanced and treated as a valuable natural feature.
Many of the North Downtown Neighborhood’s aforementioned challenges and
opportunities have been well-documented in a variety of planning documents created
by the City of Salem over the last twenty years, which will be examined in this study.
Vision & Goals
Goals of Urban Renewal on the O’Brien site (to reflect the intentions of plans Salem
has already approved and begun to implement):
Multi-modal Circulation
Improvement of multi-modal circulation in proximity to the site would provide better
access and increase connectivity throughout North Downtown. Particularly, the
improvement of connectivity traveling east/west and north/south would allow freeflowing movement of people, goods, and services through a currently challenging
area. These connections should be safe, continuous, and pleasant to use.
THREATS
•
•
•
•
Lack of cohesive
vision
Lack of community engagement
ODOT
Economic downturn + recent
failed development
6
North Downtown Neighborhood
Housing Opportunity
By promoting infill housing opportunities on site, Salem can offer an appropriate mix
of densities and incomes for a variety of housing needs. With increasing population
pressures on the housing stock within the Salem UGB, a demand for shorter
commute times to work, and the encouragement of multi-modal movement, the
O’Brien site is able to respond to the changing needs of Salem’s present and future
populations.
Vibrant Spaces
Creating vibrant spaces within North Downtown will coincide with the availability
of both commercial and residential opportunities. As an emerging neighborhood,
the O’Brien site and its immediate surroundings will include gathering places, both
indoors and out, as well as the encouragement of neighborhood-scale commercial
ventures. Amenities such as the Willamette River, the Downtown Core, and the
newly-developed Broadway/High Street area are crucial to establishing not only
options for future residents to access all of their needs and wants within walking
or biking distance, but will serve to increase accessibility of the North Downtown
Neighborhood amenities to the rest of Salem’s residents.
Plan Review
Vision 2020
The Vision 2020 document speaks to the larger goals and concise objectives conceived
for Salem over the next ten years. The document positions Salem to:
Goals of the Salem Area Comprehensive Plan
1
•
Enhance vibrancy in Downtown Salem
•
Develop housing opportunities for a growing population
•
Rehabilitate property by improving building façades
•
Enhance parking options
•
Provide wayfinding signage for public open spaces
•
Focus on pedestrian-oriented development and amenities
•
Encourage redevelopment with gap financing and rezoning where necessary
•
Provide an Array of Activities at All Hours.
•
Provide Reliable Transportation.
•
Promote convenient, multimodal access and circulation, including increased
access to transit and a focus on alternative modes of transportation to the
automobile.
Salem Area Comprehensive Plan
The Salem Area Comprehensive Plan2 sets out a number of guidelines for a few specific
action zones. Particularly pertinent to the North Downtown Neighborhood development
are Mixed Use, Infill Development, and Central Business District descriptions, purposes,
and goals.
Source: Salem Area Comprehsive Plan, May 2009
Mixed-Use, as described by the Comprehensive Plan “provides for a variety of
housing opportunities,” focusing on the compatibility of other uses with residential
areas. Complementing uses can create “economic and social vitality and the ability
to meet multiple needs in compact areas.” The intent of Mixed Use according to the
North Downtown Neighborhood
7
Comprehensive Plan is to create pedestrian-friendly, safe, efficient, usable, and parking-minimizing development.
Mixed use, in this context, satisfies the intent of infill development3 simultaneously. Efficient use of land on site encourages the
stability of neighborhoods and provides protection of residential areas from more intensive (primarily industrial) uses. Mixed use
development, in maximizing investment in public services, will ultimately foster social and economic vitality in Salem.
RDURA
The RDURA was established in 1975 in response to growing conditions of blight, deterioration, decline of property values
and business vacancies, conflicts between vehicular and railroad traffic, and other factors which the City of Salem believed
detrimental to the residents of the City. The RDURA encompasses 290 acres in the City’s central core, valued in 1975 at
$43,292,931 and again in 2008-2009 at $249,547,034. Of the $315M allocated for redevelopment of the site, approximately
$215,049,658 remains.
Urban Renewal funds have been used in the district to attract and retain business and service to the central core. Parking
infrastructure, weather protection, and streetscape improvements were prioritized in the 1980s, enabling Salem to bring
major retailers including Nordstrom, Mervyn’s, Meier and Frank, and smaller boutique shops to its downtown. Popular flagship
projects such as the Conference Center and Riverfront Park have also resulted from Urban Renewal investment. Current RDURA
funding projects include a “Toolbox” of funding options for business owners designed to spur private investment in property
improvements.
The stated objectives of the RDURA are too numerous to enumerate individually, but the following are particularly pertinent to
the O’Brien site and have informed our own goals and recommendations for the site.
•
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•
•
•
•
8
To maintain the central core area as the dominant center for regional retail and office development.
To prevent further fragmentation of central core area retail and office development activity.
To improve the pedestrian flow and protection for pedestrians between retail activities, offices, public facilities, parking,
and related areas, through improvements at street level as well as grade-separated pedestrian ways.
To encourage private restoration, rehabilitation, development, both within and adjacent to project areas, through public
improvements in project areas.
To encourage the development of new housing through the use of available measures, such as the tax abatement
provisions of HB 2343.
To increase the total housing supply adjoining the retail core.
To relieve traffic congestion and conflicts arising between cross town traffic and traffic destined for downtown Salem by
improving Front Street, minimizing the railroad conflicts through track consolidation and relocation, and encouraging
the use of mass transit.
To improve present public street and alleys 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.
To provide good pedestrian, bicycle and vehicular access to the Riverfront.
To beautify and enhance the streetscape by participating in projects involving public art, landscaping, sidewalk
North Downtown Neighborhood
•
•
•
surfacing, signing, street furniture, intersection corner bulbs, weather
protection, and related improvements.
To recognize Mill Creek as a community asset by providing open space
and good pedestrian access to and along the Creek, by acquisition of
property and construction of pedestrian/bicycle ways along the Creek and
potentially grade separated paths at major barriers such as streets.
To promote higher density housing throughout the North Downtown
including north of Union Street, along the Riverfront and on property
known as the Larmer site.
To encourage and participate in the provision of pedestrian-oriented,
mixed-use (commercial, office and residential) development along the
Broadway/High Street corridor, north of Union Street.
PEDESTRIAN ZONES
AUTOMOBILE ZONES
BICYCLE ZONES
DEVELOPMENT ZONES
GREEN ZONES
PUBLIC DEVELOPMENT ZONE
North Downtown Plan
This is not the first time that development of a North Downtown neighborhood
has been envisioned. The North Downtown Plan, approved by the City of Salem in
1997 examined many familiar concepts. As noted, “Vision for the area is a series of
mixed-use districts offering a variety of employment, retail, and residential uses,
including a range of low, medium, and high density housing...to take advantage of
the area’s proximity to Downtown Salem, the Capitol Mall, and amenities offered by
the Willamette River and Mill Creek.”4
The plan called out a number of key points regarding accessibility to “reduce
reliance on the automobile” in the interest of improving the pedestrian and bicycle
networks. The plan discusses a progressive densification of the North Downtown.
Recommended in stages, the area north of the downtown core would increase
density progressively, as maximum build-out was ambitious for the market at that
time.
The major tenet informing the North Downtown Neighborhood development
was envisioned as part of the initial plan for this area. This development area was
proposed as a transition between the Riverfront (an area of high-density housing
informed by the Riverfront Overlay Zone) and the Broadway/High Street area. Today
one can see new buildings fulfilling the vision of the Broadway area, revealing
the potential of the North Downtown as a segue between projected high density
Riverfront, Broadway/High Street, and the Downtown core.
Proposed roundabout at Divison St. and Liberty St.
intersection
North Downtown Neighborhood
9
Transportation
Due to its proximity to downtown and the existing neighborhoods at the city’s periphery, there is
potential for this site to serve as a catalyst for redevelopment in a manner that would meet Salem’s
goal of increasing pedestrian accessibility throughout the downtown; however, some changes will
be necessary in order to accomplish both of these goals. Currently, there are only three painted
and controlled crosswalks that facilitate pedestrian travel on the West side of the site (one of which
crosses Highway 99 on the Front St. NE portion of the road, one crosses Division St. NE to the east,
and one crosses Commercial St. NE after Highway 99 turns into Front St. NE to the South). Due to the
lack of a crosswalk along the northern edge of the intersection, pedestrian travel on the Western side
of the site is very difficult, resulting in the need for up to three separate crossings by pedestrians that
wish to get to the West side of Highway 99. There are no painted or controlled crosswalks on any of
the other intersections surrounding or bisecting the site.
The lack of crosswalks surrounding the site is a very real danger for pedestrians and cyclists who
are trying to circumnavigate the busy intersections that stand in the way between the downtown
district, nearby parklands, residential neighborhoods, and other amenities. There are between
20,000-40,000 cars per day traveling down Commercial St. NE and Front St. NE, 10,000-20,000 cars per
day traveling down Liberty St. NE, 5,000-10,000 cars per day traveling down Division St. NE, and fewer
than 5,000 cars per day traveling down Union St. NE.5 When examining the O’Brien Site in terms of
the existing transportation network, it is clear that the site itself was not designed with pedestrians
and cyclists in mind, but as a way to move cars and trucks quickly and efficiently through the city.
This raises the question: what types of traffic calming measures, street and alley redesigns, and
bicycle route changes could be implemented surrounding the site that would facilitate an increase in
pedestrian/cyclist accessibility while limiting the impacts to the current flow of traffic?
Traffic Calming
Proposed alleyway in North Downtown
allows for shared right-of-way by multiple
modes.
Currently, there are no traffic calming measures in place along these roads, save for one lone traffic
signal located at the intersection of Commercial St. NE, Division St. NE, and Front St. NE, as well as the
aforementioned signaled crosswalks. This intersection is a more traditional intersection, with oneway traffic from two road segments being funneled to two-way segments. By implementing traffic
calming measures on the site, the city can meet their pedestrian walkability goal by promoting a
sustainable transportation alternative.6 In this instance, traffic calming measures could be used to
assist in improving local accessibility by improving road safety, reclaiming space for pedestrian and
cyclist traffic, improve mobility, increase visibility, and create environmental improvements.7 Defined
more clearly, there are three primary ways to make intersections safer for pedestrians: reduce speeds,
separate pedestrians from traffic, and increase visibility of pedestrians to passing motorists.8
One of the ways this plan seeks to address the issues of traffic is to install a roundabout at the
intersection of Division St. NE and Liberty St. NE. The construction of roundabouts is the current
10
North Downtown Neighborhood
best practice in many areas for handling motor vehicle speeds in these types of intersections.9
Roundabouts are, by operating definition, a circular intersection that causes a driver to yield at
entry to passing vehicles while proceeding to enter the intersection at a deflected angle from the
automobile’s original trajectory, resulting in a lowering of speeds.10 A lowering of speeds by 1 mile
per hour can cause upwards of a 5% decrease in traffic accidents.11 Further, a 2007 study conducted
by the National Cooperative Highway Research Program of the National Academies has shown that
converting a traditional intersection to a roundabout led to a 35% reduction in crashes and a 76%
reduction in fatal or serious injury crashes.12
By implementing a roundabout as part of the transportation network on this site, specifically the
intersection of Liberty St. NE and Division St. NE, there could be a significant drop in collisions in the
area, as well as providing a safer environment for cyclists and pedestrians by giving them a safer way
to circumnavigate an intersection that currently has no marked crossings. Because traffic is forced
to yield at the openings of a roundabout, cyclists and pedestrians would have ample opportunities
to cross the street at any of the openings. In fact, the City of Salem already has a number of
roundabouts planned for streets within a half-mile of the O’Brien site, specifically near Cottage St.
and Union St. NE.
Street and Alley Redesigns
The current street designs surrounding the site have been primarily automobile focused throughout
Salem’s recent history. Due to the fact that there are not many pedestrian-accessible locations on or
surrounding the O’Brien site, bicyclists and pedestrian access have been all but left out of the street
design process. This plan aims to address the street and alley design as it currently is and provide
recommendations that would facilitate an increase in bicycle/pedestrian access.
The primary aim of the North Downtown Neighborhood Plan is to re-focus the streetscape to the
intersection of Liberty St. NE and Division St. NE by installing the aforementioned roundabout at
that particular intersection, adding enlarged curb bulb-outs, utilizing improved sidewalks and
crosswalks surrounding the intersection, and improving the streetscape to entice motorists to slow
their speeds. Because the downtown area is so close to the site and has much of its commercial
space situated on Liberty St. NE, the thought is that by focusing the site toward Liberty St. NE, it
will provide continuity with the downtown district and help bicyclists and pedestrians avoid busier
streets such as Commercial St. NE and Front St. NE. This will be facilitated by the redesign of Liberty
St. NE to the North of the site where traffic is bi-directional, while preserving the one-way traffic flow
to the South. The street sections to follow in the Design section iustrate the proposed redesign of
the street to the North; Included is a proposed roundabout to further calm traffic while maintaining
efficiency.
Circulation Improvement Map of Salem
In addition to the redesign of Liberty St. NE, redesigns of Division St. NE and the alleyways within
the site are being proposed. The Division St. NE redesign focuses on narrowing the drivable space
North Downtown Neighborhood
11
by removing one lane of traffic and one lane of on-street parking, installing two green buffers on either side of the new drivable
space, and two dedicated bicycle lanes on either side of the green buffers between the buffers and the sidewalks. This narrowing
of the road will not only encourage slower speeds for motorists, but will also provide safer travel for bicyclists and pedestrians.
By providing ample walking and cycling space, residents of, and visitors to, the North Downtown Neighborhood will feel safer on
the streets and instill a sense of place for the site.
This sense of place and safety will also transition to the alleyways where multi-modal transportation will be encouraged by
providing parking for businesses and residents in large courtyards between buildings and by being constructed out of materials
that are conducive to not only automobiles, but cyclists and pedestrians as well. The inset street sections illustrate the redesign
of Division St. NE and two separate alleyway treatments.
Bicycle Route Changes
Additional bicycle lanes are a necessity in order to provide future residents, visitors, and current citizens of Salem with easy
bicycle access throughout the city. In order to provide these additional bicycle lanes, some concessions must be made in the
form of on-street parking and lanes of traffic along Division St. NE, Liberty St. NE, and the alleyways throughout the North
Downtown. The proposed changes, while a departure from current streetscape designs within the city of Salem, provide ample
travel space for vehicles and increase the surface area designated specifically for bicycles and other green space on the site. The
changes will also assist in the calming of traffic along these routes, making cycle and pedestrian travel safer, and helping give the
site an identity as a distinct district of the downtown area.
The inset circulation map outlines, as well as the previous street section diagrams, illustrate the planned revisions to the bicycle
route network. The existing bicycle routes are designated with red lines, while the blue lines represent additional bicycle lanes to
be created as a result of redevelopment. The rationale behind these routes is quite simple—they connect potential cyclists to the
downtown district (via Liberty St. NE to the South), West Salem (via the existing Union St. NE pedestrian bridge), High St. NE (via
Liberty St. NE to the North), and between sections of the site itself (via alleyways between Division St. NE and Union St. NE) by
utilizing existing roads and alleyways. By providing these connections, Salem can meet its planning goal of increasing walkability
within the central business district.
Conclusion
By redesigning the transportation network on the O’Brien site, calming traffic, and promoting pedestrian and bicycle
transportation options, the City of Salem can significantly, and positively, impact redevelopment efforts for the future North
Downtown Neighborhood by meeting the three target goals of this redevelopment plan:
12
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Through the creation of a roundabout at the intersection of Liberty St. NE and Division St. NE, the city can keep traffic
flowing at a moderately used intersection while providing a safer intersection for pedestrians to traverse.
•
Through the redesigning of the streets and alleyways on the site, the city can meet its goals of increasing bicycle/
pedestrian transportation options for the residents of Salem while giving the newly created district a sense of place.
•
Through the creation of new bicycle routes along the current roadways and alleyways, the city can meet its goal of
increased bicycle/pedestrian transportation options while improving connectivity between existing districts of the city
North Downtown Neighborhood
in a manner that is innovative and that provides additional levels of
safety for those who use them.
Zoning
Proposed Land Use Mix for the O’Brien Site
Policy change recommendations
Examples of floating zone form based code are found in Sarasota County,
Florida; St. Lucie County, Florida; and Saticoy Wells Community in Ventura, CA.13
- MIXED USE
ER
C
IAL
ST
_ OFFICE/ LIGHT
INDUSTRIAL
MM
- RESIDENTIAL
- WATER CORRIDOR
DIV
ISIO
NS
ER
TY
ST
- GREEN SPACE
HIG
HS
T
T
LIB
The local government shall set the building form and public space standards
that define the public realm. With this information, developers, with the aid
of public process, may create a regulating plan in order to designate the
locations where different building form standards apply. Regulating plans
may be submitted to the Salem Planning Commission for approval through
the rezoning process. To promote and encourage a new vision for the North
Downtown neighborhood, this new floating code would provide flexibility and
responsiveness to the future residents’ changing needs, as the area develops.
- PARKING
CO
Toward the goals of improving multi-modal circulation, promoting infill
housing opportunities, and creating vibrant spaces, the North Downtown
Neighborhood Plan recommends implementing a floating zone code
written as form-based code, in order to regulate the urban form. It is the
recommendation of this plan that the floating zone code supplant current
zoning regulation on the O’Brien property specifically. Upon analysis of results,
this code can then be applied to areas throughout the neighborhood in the
interest of continuing positive redevelopment.
UN
ION
ST
Street Corners
The North Downtown Neighborhood will be defined by its vibrant, active
street corners. “The essence of a street corner is that it acts as a node, and a
landmark, and as a meeting point.”14 Offering unique opportunities due to
their visible and physical access from two streets, corner lots form gateways
into neighborhoods and provide places for social interaction in the pedestrian
environment. Past studies indicate that “people living in locations with higher
visual integration and clustering coefficient (which measures tightly-clustered
visually-linked spaces), [such as] the corner of a street, had more social formal
North Downtown Neighborhood
13
and informal contacts.”15 It is important to apply strategies that develop the street as a social space
and not just a thoroughfare. Following this reasoning, corner lots are a design priority for the O’Brien
site.
Essential principles of good urban design also apply to street corners. The urban environment
needs to be permeable, so people can go where they want; legible, so people can understand their
surrounds; robust and rich, so the space is flexible and interesting.16
In following with the principles of positive urban design, the city of Portland outlined five attributes
intended to enhance the pedestrian experience of street corners.17 We believe that the following
attributes align with Salem’s vision for multi-modal circulation.
•
Clear Space: corners should be clear of obstructions, and have enough space to
accommodate the typical number of pedestrians waiting to cross. They should also have
enough room for curb ramps, for transit stops where appropriate, and for street conversations.
•
Visibility: it is critical that pedestrians on the corner have a good view of the travel lanes and
that motorists in the travel lanes can easily see waiting pedestrians.
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Legibility: symbols, marks, and signs used at corners should clearly indicate what actions the
pedestrian should take.
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Accessibility: all corner features, such as ramps, landings, call buttons, signs, symbols, marks,
textures, etc., must meet accessibility standards.
•
Separation from Traffic: corner design and construction must be effective in discouraging
turning vehicles from driving over the pedestrian area.
In addition to complying with utilitarian and safety demands, the North Downtown Neighborhood
Plan recommends celebrating street corners through design strategies such as:
Landscaping defines the pedestrian space
and helps to calm traffic.
14
North Downtown Neighborhood
•
Expanding street corners to provide space for place-making elements such as street furniture,
bicycle racks, and lighting.18
•
Changing paving materials to indicate zones for different modes of transit, to call out
crossings, and emphasize the corner.
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Providing landscaping such as raised planters, moveable planters, planting strips, bollards,
and benches that help create defined pedestrian space.19
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Including public art such as include murals, banners, decorative or unique signs, sculptures,
and pavement designs.20
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Developing buildings of appropriate height, bulk and scale, which serve to define the street
corner and still be oriented to the pedestrian.
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Locating entrances on corners, so they address both streets.
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Including special architectural detailing and materials such as friezes.21
Anticipated Popoulation Growth, Salem 2010-2031
Land Use Mix
Housing Market Analysis
The housing market in Salem is predicted to both grow exponentially, and change over the next 20
years. With this in mind, the use of downtown areas previously designated for other uses, will likely
change to accommodate this growth.
As noted at right, a total population growth of about 43% within the Salem UGB, and a 24% growth
in Keizer, it is likely that the current stock will not be able to absorb this rising housing demand. A
particularly interesting relationship is developing in both West Salem and Turner, where the rate of
population growth is vastly outpacing expected increases in employment. One conclusion may offer
that these individuals will seek employment in Salem proper, namely in points South and potentially
North (in the case of Turner).
Predictions indicated are based on current housing options. Given that North Salem currently
contains less housing growth opportunities (as it is geographically constrained, unlike points South
and West, which afford less-dense or greenfield development opportunities) it follows that regions
with more growth potential may grow faster.
Recommendations that could shift the growth patterns of population expansion and employment
opportunities will include targeting housing development toward the downtown core, providing
opportunity for population seeking both residence and employment to locate within proximity to
the Central Business District.
Cost burden often implicates housing choices. Limited by housing options at the county level, as
described by as noted on the following page (at left), only gets worse when measured at the city
level. As implied by these cost burden studies, many Salem-ites are forced into overly-expensive,
burdensome housing choices. Particularly in reference to the rental market, over half of Salem
residents’ rent costs them 35% or more of their annual income. Though the circumstances are
slightly alleviated for ownership, perhaps influencing the data by factoring in existing allowance of
mortgage tax-write offs, over a third of owners are cost burdened as well.
With this in mind, providing alternatives to the existing housing stock could offer many of these
cost burdened households a chance to mitigate their burden through an alternative housing type.
Whether it means providing an appropriate rental option for an over-burdened owner, or a more
affordable unit for a tenant renting a high-priced or over-sized apartment, new housing on the
O’Brien site will provide alternative supply options for this under-served demand.
Population
Expected
Increase
22617
15201
36125
7791
1734
1811
85279
Percent
114%
20%
48%
24%
145%
18%
40%
Employment
Expected
Increase
1032
11381
19458
4892
105
100
36968
Percent
30%
25%
53%
123%
33%
4%
40%
Study Area
West Salem
North Salem
South Salem
Keizer
Turner
Outside UGB
SKATS Area Total
Study Area
West Salem
North Salem
South Salem
Keizer
Turner
Outside UGB
SKATS Area Total
Source: Salem Keizer 2031 Regional Transportation Systems Plan, Figure 3-1
Occupancy of Housing Stock in Salem
Occupied Housing
Available
Housing
Total
Percent
Owner
Renter
Oregon
1628638
1478731
91%
64%
36%
Marion
County
120214
113022
94%
62%
38%
Polk
County
27754
25909
93%
71%
29%
Salem
60110
56588
94%
57%
43%
Source: U.S. Census Bureau, 2009 American Community Survey
North Downtown Neighborhood
15
Retail/Office Market
Housing Affordability: County & City Level, 2009
Marion & Polk Counties
Percent of
Income
Owners
Renters
Total
Number
Percent
Number
Percent
Number
Percent
Less than 20%
33,212
38%
10,655
22%
43,867
33%
20% - 24%
11,782
14%
7,177
15%
18,959
14%
25% - 29%
12,494
14%
5,213
11%
17,707
13%
30% - 34%
7,933
9%
6,170
13%
14,103
10%
35% or more
21,142
24%
18,950
39%
40,092
30%
Total
86,563
100%
48,165
100%
134,728
100%
52% 54,195
40%
34% 25,120
Cost Burden 29,075
Source: U.S. Census Bureau, 2009 American Community Survey
Salem
Percent of
Income
Less than 20%
Owners
Renters
Total
Number
Percent
Number
Percent
Number
Percent
11,983
35%
5,133
22%
17,116
30%
20% - 24%
5,388
16%
3,566
15%
8,954
16%
25% - 29%
4,003
12%
1,995
9%
5,998
11%
30% - 34%
4,055
12%
2,582
11%
6,637
12%
35% or more
8,406
25%
9,952
43%
18,358
32%
33,835
100%
23,228
100%
57,063
100%
54% 24,995
44%
Total
Cost Burden
12,461
37% 12,534
Source: U.S. Census Bureau, 2009 American Community
Survey
Markets are trending towards smaller, more manageable office spaces. The demand of these
spaces as noted in the Downtown Action Plan, focusing on areas of 2,000 -3,000 ft2. Shorter
leases (3-5 years) in this down economy have encouraged more of the retail market to seek
space Downtown. Similarly, smaller office space closer to the 1,000 – 5,000 ft2 range have
attracted small business entrepreneurs to Downtown. Vacancies in these two categories hovers
between 22-24%.22 Supportability of retail is based on an index calculation that each resident
can support 20ft2 of commercial space.23 Retail space amounting to larger than the calculated
value must rely on traffic from other parts of Salem.
Recommendations:
Live/Work Units
Entrepreneurial opportunities and the increased rate of business “start-up”s in Salem will
likely change the character of Salem’s economy. Hedging that shift are many individuals
and organizations such as Chemeketa’s Center for Business & Industry (CCBI). The incubator
program has started in recognition of the changing economic climate to provide resources to
new business owners as they enter the market. Chemeketa offers single-person office space
(approximately 10’ x 10’) with access to a communal space. The selling point of these spaces is
two-fold; on one hand, a sole-proprietor business can access a space away from home (but not
too far) in a new building where they can meet with clients and stay focused on work-related
tasks, while on the other hand have the opportunity to interact with other small start-ups and
potentially spur new ideas and partnerships.
These incubators all require a 1-year lease (for a maximum of 3) with a graduated lease each
year; prices start at $285-$325 and go up each year. They include internet, copy services, and fax
facilities, along with an “all-you-can-eat” class schedule in the business program. The education
component is compulsory.24
Not all of the available spaces are filled, but interest in office space of this size has been high.
“Most of the calls we’ve been getting have been seeking cheap, smaller-sized office space
[referring to larger vacant spaces available in Salem, that rent for much higher amounts and
require a longer lease commitment]” says Joanne Scharer of the Small Business Development
Center.25 Start-up businesses, along with the education component at CCBI, are seeking a
community support base. Based on conversations with local business owners it becomes clear
that most of the interest in smaller office space is generated by opportunities to interact with
other small-business owners.
Vacancies of downtown commercial office and retail spaces are evidence that product Salem
currently provides is not right for the market. North Downtown shallow office spaces, many with
16
North Downtown Neighborhood
on-street visibility, will provide opportunities for new local businesses to generate interest and interact
with one another while mitigating risk. Current emerging market ventures typically require less space
than traditional office space available in Salem.
Housing Preferences
According to the 2002 joint effort of ECONorthwest and Johnson Gardiner, “City of Salem Core Area
Housing Market Study” suggests that the current housing stock in Salem is one rooted in the current
supply of housing options: Vacancies, the report suggests, are attributed to prevalence of the wrong
product.26 Working with market preferences to achieve a desirable, affordable option for those seeking
housing close to downtown, whether it be for work or otherwise, will encourage diversification of the
existing housing market. Areas around Downtown Salem will, upon addition of Mixed Use housing
development on-site, the outcome will include higher densities and smaller floor plans to capture this
underserved section of the market.
Analysis of “Live Here/Work Here” ratios suggests that many more people would live closer to Downtown
if there were an available stock of mid-sized apartments within an affordable price range.27 HUD notes
the affordable rate for a 2-bedroom apartment in Salem to be $675/month.28 Preferences lean towards
1-2 bedroom apartments close to downtown, from which many have concluded a preference for shorter
commute times.
Proposed Housing Options (Above)
and Live/Work Units (Below)
Mix of Incomes
By diversifying the housing products available, Salem will encourage a mixing of incomes in the North
Downtown. Developments with a variety of “types” of urban units with varying numbers of bedrooms and
floor areas will attract a previously ignored, and currently growing, section of the housing market.
Based on data collected for Census Tract 2, Block Group 1 where the O’Brien site is located, there is a
prevalence of small households with low household income levels (presumably singles with no children),
most of whom are in the 20-34 year old age bracket. Most of these young people are renters.29
A diversification of income levels and unit type can encourage the inclusion of many kids of housing
solutions. A diverse selection of workforce, senior, student, and market rate housing has the potential
to succeed on site and create “critical mass” for housing and community in the North Downtown
Neighborhood.30 Involvement with the CANDO Neighborhood Association, within which the site rests,
could further refine the market profile for eligible tenants and owners. CANDO representatives have been
involved in potential development strategy discussions, however their recommendations have yet to be
realized. Many of their suggestions echo the Johnson Gardiner Study.31
Amenities
The inclusion of basic amenities to the North Downtown Neighborhood may be a very low-impact but
high-return element to the development of the area. With the addition of a restaurant, a coffee shop,
North Downtown Neighborhood
17
or a corner fresh food market, the magnetism of the area could grow significantly. These uses could be easily
integrated into the recommended mixed-use zones of the site, as well as create a symbiotic relationship with
adjacent office space.
Equal access to amenities and resources can induce a positive multiplier effect. Based on recommendations from
the Urban Land Institute, nearby residents could support Salem’s commercial center; Adjacent residents could
provide both an increase to business-hour commerce, but may stimulate the necessary demand for evening and
nightlife in Salem’s Downtown Core. When individuals weigh housing options, and likewise when owners choose
a location for their business, proximity to amenities becomes a deciding factor.
Reaching the Ideal Density
Proposed Mixed-Use Live/Work Units
Following the recommended mix of land uses, a proposal for density over the entirety of the site seems more
appropriate and most likely more amenable to flexible development. Based on analysis of housing cost burden
and density to create not only a more livable, but a more desirable neighborhood downtown, 25 - 35 units
per acre is suggested for development on this site. In doing so, the City of Salem will minimize the additional
infrastructure required per captia and incur less stress on the already over-burdened arterial transportation
network.
By zoning Mixed Use and Multi-Family Residential we hope to achieve this “ideal” density. Commercial office
space and ground floor commercial within mixed use buildings will offset dense residential development and
connect new development on Broadway/High Street with the Downtown Core.
Existing & Proposed Zoned Densities
Units Per Acre
Minimum
Compact Development
RM1
RM2
MU
Proposed
n/a
8
12
12
25
Maximum
14
14
28
n/a
35
Source: SRC 143F, 148, Salem Development Design Handbook
18
Based on the proposed recommendations of approximately 2.53 acres are dedicated Mixed Use, indicating
ground-floor retail in these areas. Based on the suggested support for retail,32 traffic from approximately 4,900
people will support these businesses.
At 25-35 units per acre, with the recommended residential designation of 1.5 acres combined with upper-level
mixed use residences, approximately 100 - 140 new units would be built on-site. Potentially, this could house over
400 people, based on 3 person occupancy. By providing higher density housing in this area, more open space can
be rededicated; prime locations include the restoration of the Mill Creek riparian buffer as well as “pocket” sized
park space interspersed throughout the North Downtown. Maintaining quality of life by providing greenspace
paired with access to amenities and services could make the North Downtown a highly desirable place to live.
With proximity to the downtown core, the improved access to amenities, and the potential to target pent-up
demand for these particular housing and office types, the North Downtown Neighborhood could come into its
own.
North Downtown Neighborhood
Urban Design
Design elements of the North Downtown Neighborhood site can be best expressed through sections and
plan sketches. These graphical representations will provide an ideal vision for the O’Brien site’s potential
Walking can be a social activity. The eight foot width of the sidewalks allows to
people to walk comfortably side by side and provides sufficient space for street
furniture and for other pedestrians to pass.
North Downtown Neighborhood
19
Bicycle tracks are added to enhance north/south accessibility to and through the site.
Pedestrians are provided a measure of safety during crossings with a new median that
serves as a refuge area.
20
North Downtown Neighborhood
On-road segregated bicycle facilities provide a safe and comfortable ride to cyclists
heading to the Union Street Bridge. Midblock curb extensions shorten crosswalks
for pedestrians. Continuous building walls, trees, and lighting help to define space in
the right-of-way, creating outdoor rooms.
North Downtown Neighborhood
21
Some parking is made
available under building
overhangs, which
allows people to house
their automobiles in
close proximity to
their destinations and
furthers the concept of
integrated public space for
automobiles and human
activity.
Lane south of 27th Ave., Vancouver, BC
22
North Downtown Neighborhood
Changes in pavement surfaces
and landscaping indicate the alley
as a shared space between modes
of transit.
Parking plazas in the inner block provide for
people visiting local businesses from off-site,
yet pedestrians and cyclists have priority on
the street.
North Downtown Neighborhood
23
Conclusion
Salem has envisioned many times over the potential of the North Downtown area, with the intention
of providing an area for infill, positive growth, and amenities near the historic downtown core. Over
time these visions have not wavered, but aside from a few high-profile projects, they have yet to produce systemic improvements specific to the needs and wants of the intended beneficiaries of these
plans. The intent of the current revisioning of the O’Brien site is to catalyze large scale development
in the North Downtown.
The economic structure is shifting Salem away from its extraction and processing past towards a
knowledge-based economic future. For the city to be ready for such a shift, efforts must be taken
to consider the resources and opportunities required to grow these independent ventures within
Salem. Among the required inputs are office spaces geared towards emerging business needs, and
economically feasible housing opportunities for this emerging workforce. With this new demographic comes a new list of priorities; preferences in housing types, proximity to the workplace, and
opportunities relating to accessibility of amenities become paramount when fulfilling the pent-up
demand for smaller, denser, and more affordable housing units. Encouraging a pedestrian-oriented
development pattern provides independence from traditional modes (specifically automobile
travel), enabling active transportation.
The North Downtown as proposed in this plan encourages equity among residents in access to amenities and services. Though traditional measures of affordability do not typically include the added
transportation expense of living in sprawling residential development, the provision of compact,
close-in options for locating housing near downtown cuts down on cost of living significantly and
enables Salem’s workforce to readily access its many offerings.
With the resources of the Sustainable Cities Initiative, the University of Oregon, and the City of
Salem’s engaged and ambitious planning staff, the City is in a fortuitous position to create positive change in its development of the North Downtown Neighborhood. When Salem’s plans for the
district come fully to fruition, the emergence of a multi-modal, vibrant, mixed-use North Downtown
Neighborhood will provide new opportunities for a growing and changing population in Salem’s immediate and far-off future.
24
North Downtown Neighborhood
References
Plan Review
1
City of Salem (April 2008) “Vision 2020 Action
Plan.” xhttp://www.cityofsalem.net/CityCouncil/CityProjects/
Vision2020/Documents/action_plan_040708.pdf
2,3 City of Salem (May 2009)“Salem Area Comprehensive Plan.”
http://www.cityofsalem.net/Departments/CommunityDevelopment/
Planning/Documents/SACP_MAY2009.pdf
4
Pacific Rim Resources, et. al. , for the City of Salem (July 1997) “City of
Salem North Downtown Plan,” 19 https://scholarsbank.uoregon.edu/xmlui/
bitstream/handle/1794/5709/Salem_North_Downtown_Plan.pdf?sequence=3
Transportation
5
City of Salem, Public Works (2010) “Traffic Counts.” http://www.
cityofsalem.net/DEPARTMENTS/PUBLICWORKS/TRANSPORTATIONSERVICES/
TRAFFICENGINEERING/Pages/TrafficCounts.aspx
6
Randal, T.A., Churchill, C.J., and Baetz, B.W. (2005) “Geographic
Information System (GIS) Based Decision Support for Neighbourhood
Traffic Calming.” Canadian Journal of Civil Engineering (32), 86-98.
7
Pharaoh, T.M., and Russel, J.R.E. (1991) “Traffic Calming
Policy and Performance: The Netherlands, Denmark, and
Germany.” The Town Planning Review 62(1), 79-105.
8
Retting, R.A., Ferguson, S.A., and McCartt, A.T. (2003, September) “A Review
of Evidence-Based Traffic Engineering Measures Designed to Reduce PedestrianMotor Vehicle Crashes.” American Journal of Public Health 93(9), 1456-1463.
9
Chalmers, M. (2010, June 24) Roundabouts
gaining ground. USA Today, pp. News-03a.
10 Retting, R.A., Ferguson, S.A., and McCartt, A.T. (2003, September) “A Review
of Evidence-Based Traffic Engineering Measures Designed to Reduce PedestrianMotor Vehicle Crashes.” American Journal of Public Health 93(9), 1456-1463.
11 Garrod, G.D., Scarpa, R. and Willis, K.G. (2002, May) “Estimating
the Benefits of Traffic Calming on Through Routes: A Choice Experiment
Approach.” Journal of Transport Economic and Policy 36(2), 211-231.
12 Chalmers, M. (2010) p. News-03a.
Zoning
13 Form-Based Codes Institute (2010) March 10, 2011.
<http://formbasedcodes.org/samplecodes?page=1>
14 Gardner, G. and Evans, R. Towards Good Urban Design.
(Antwerp: World Conference on Transport Research) 1998, p. 5
15 Raman, Shibu. (2010)“Designing a Liveable Compact City Physical Forms
of City and Social Life in Urban Neighbourhoods.” Built Environment. (36) p. 73
16 Gardner (1998) p.4
17 City of Portland (1998)“Portland Pedestrian Design Guide Section B” p. B-1
18
Otak, Inc. (2008)“City of Cheyenne Streetscape/Urban Design Elements” p. 4
19 Otak, Inc. p. 4
20 Otak, Inc. p. 16
21 City of Seattle Department of Design, Construction & Land
Use (2000) “Pike/Pine Urban Center Village Design Guidelines” p.4
Land Use Mix
22 Leland Consulting Group and Otak, Inc., for the City of Salem (December
2010) “Final Draft of Downtown Salem Action Plan with Appendices” p.33
23 “Downtown residents provide additional buying power to
support local merchants, where every resident can support up to 20
square feet of retail space.” Leland Consulting Group and Otak, Inc., for
the City of Salem (2011)“Final Draft Action Plan with Appendicies” p.9
24 Chemeketa Center for Business and Industry, “EDGE Business Incubator”
5 March 2011 http://www.chemeketa.edu/busprofession/ccbi/sbdc/edge.html
25 Conversation with Joanne Scharer, Advison of the
Small Business Development Center at Chemeketa Community
College, Salem, OR. 5 March 2011, 1:30pm.
26 Johnson Gardiner and ECONorthwest (May 2002)
“City of Salem Core Area Housing MarketStudy.” p.11
27 Johnson Gardiner and ECONorthwest (May 2002) “City of Salem Core
Area Housing Market Study.” Market Area Workplace Population Table, p. 6
28 HUD Fair Market Rent 2010 in Marion County,
http://www.huduser.org/datasets/fmr.html
29 U.S. Census 2000, Census Tract 2, Median
Age; Household by Tenure; Salem, OR.
30 “Final Draft Downtown Salem Action Plan with Appendicies,” p. 11
31 Central Area Neighborhood Development Association
(CANDO), Salem Urban Development Offices, 350 Commercial
St. NE, Salem. http://www.youcando.org/
32 “Final Draft Downtown Salem Action Plan with Appendicies” p. 9
North Downtown Neighborhood