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					                     Pendleton Downtown Plan background information
Please see the full application packet attached to this document for information on the grant and scope.

Previous studies/efforts/documents that were reviewed and incorporated into this project:

2000 Pendleton Downtown Business Survey

2003 City of Pendleton Urban Renewal Plan
The area designated in the Plan meets the Statutory definition of blight as defined in ORS 457.010

The Pendleton Downtown Riverfront Urban Renewal Plan (the ―Plan‖) is intended to promote the vitality of downtown
and the Umatilla riverfront as the cultural and tourism center of the Pendleton community. The Plan will provide for
improvements to tourist and cultural facilities, riverfront access and development, downtown parking, street and utility
improvements, and will promote housing downtown. It will also assist property owners in the rehabilitation, development
or redevelopment of their properties. The Plan was developed with the guidance of the Urban Renewal Plan Advisory
Committee, a group of Pendleton residents, business and property owners.

Goals and Objectives
The goals of the Plan represent its basic purposes. The objectives for each goal generally show how the goals are to be
achieved. The urban renewal projects called for in Chapter IV of the Plan are the specific means of meeting the

Goal 1: Increase The Vitality Of Pendleton’s Downtown.
Strengthen downtown‘s role as the retail, service, office, tourist and cultural heart of the Pendleton community. Promote
new housing opportunities downtown.
  1A: Promote rehabilitation and restoration of historic and cultural structures in the downtown core.
  1B: Increase downtown‘s attraction to Pendleton residents and visitors.
  1C: Rehabilitate and/or redevelop the commercial and residential areas bordering the downtown core.
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                      Pendleton Downtown Plan background information
  1D: Improve downtown cultural facilities and promote construction of new cultural attractions.

Goal 2: Connect Downtown Pendleton To The Umatilla Riverfront.
Increase access opportunities to the river from downtown and promote new housing and commercial development on
riverfront properties.
  2A: Promote development of land adjacent to the riverfront walk for uses that take best advantage of riverfront location.
  2B: Improve access to the riverfront from throughout downtown.
  2C: Create additional ways of enjoying the riverfront.

Goal 3: Improve Downtown Pendleton As A Convention And Tourism Destination.
Enhance the city‘s identity and facilities to attract tourist and convention business to visit and stay in downtown
  3A: Strengthen the entrances to downtown from the I-84 freeway and Hwy 30.
  3B: Improve downtown tourist and convention facilities.
  3C: Increase parking, and provide streetscape and pedestrian amenities to enhance downtown businesses.

Goal 4: Develop A Range Of Housing Opportunities For A Mixed Use Downtown.
Encourage new downtown housing alternatives that support or are complimentary to retail, service, office and tourist
commercial uses.
  4A: Promote attached single-family housing and multi family housing alternatives.
  4B: Promote housing in combination with commercial uses downtown.
  4C: Promote the rehabilitation of existing housing units in the downtown area.

2006 Pendleton Downtown Resource Team Report
Six goals served as a framework for members of the Pendleton Resource Team. They include:
1. Develop strategies to address on-street parking and circulation on Main Street, increase pedestrian friendliness, and
    better connect downtown to the Round-Up Grounds and river.
2. Strengthen Pendleton‘s central business district, improve and enhance existing business and grow new local
3. Address the identified need for the redevelopment of vacant upper floors with a mix of housing options.
4. Promote a historic preservation ethic for Pendleton and explore opportunities to expand the National Register Historic
    District in downtown or create adjacent district(s).
5. Develop prioritized strategies for downtown Pendleton based on the identified needs, vision of the community, and
    best opportunities for success.
6. Improve the local capacity of stakeholders to successfully implement a variety redevelopment projects.

Perhaps before the question is answered as to what makes a downtown work, the issue should be addressed as to why
having an economically vital, inviting downtown is important.
Downtown redevelopment, economic development and job growth are intricately connected - - especially in areas where
tourism is an important economic driver. The way a downtown looks and functions does matter to economic development.
These days, an attractive, viable downtown is necessary to garner more visitor and resident dollars and send the message
to potential businesses, industries, investors and residents who may locate in Pendleton, that the community values its
downtown as the commercial, social and cultural center of the community.
Downtowns are not static. They are never static, but are always moving forward or backward - - sometimes incrementally,
sometimes not. Successful downtowns are active, inviting, pedestrian-friendly environments that have a range of retail,
service, dining and housing options for community members and visitors alike. Successful downtowns don’t just
happen. They are a complex interweaving of the following components:
• A shared vision, detailed plan and strong commitment to downtown; supporting it as the vital commercial, social and
   cultural hub of the community;
• A cooperative public/private partnership that works together on downtown revitalization activities;
• ‘Downtown champions’ - - usually an organized group who are the driving force for redevelopment and revitalization
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                    Pendleton Downtown Plan background information
• An understanding that downtowns don’t go downhill overnight and won’t be revitalized overnight and that
   downtown redevelopment is an arduous process - - but one worthy of time, monetary, and volunteer and staff
• A mix of private and public funding is necessary in order to undertake a several types of downtown projects;
• A mix of uses is important in downtown, including upper floor housing;
• The right mix and clustering of locally owned businesses that are sensitive to the needs of shoppers and changing
   retail trends;
• A pedestrian friendly, walkable environment that is conducive to ‗pulling‘ shoppers down the street with contiguous,
   active storefronts that are built to the sidewalk and have eye-catching displays;
• Safe, welcoming sidewalks and ‘calm’ streets that have clear circulation patterns identified for both vehicles and
• Inviting public spaces and amenities that encourage social interaction and gathering - - serving as the ‗living room‘
   of the community;
• Cooperative, high quality marketing to a variety of well defined target audiences;
• Downtown should be the home to a variety of unique special events and activities that fall into the categories of:
   image, retail, and special events;
• Perhaps, it is a positive, ‘can-do’ attitude that makes all the difference in revitalization efforts - - one of pride,
   cooperation and stick-to-it-ness; where the community works together towards a more positive future for downtown.

5 Rules for a Well-Designed Downtown
1. Create a sense of place.
o Reflect your natural and cultural heritage
o Make downtown a place that people remember in a positive way
2. Design the place for people.
o Downtowns need to be at a scale for pedestrians.
o Create building details & signage for pedestrians.
o Make sidewalks & public spaces enjoyable.
3. Mix in a variety of uses.
o Mixed-uses need to be both vertical & horizontal.
o Local complementary uses should be adjacent to one another.
o Have uses that keep downtown active after 5 pm.
4. No parking lots in front of buildings.
o Locate parking to the side, or behind, buildings.
o Use on-street parking where possible to help shrink parking lots.
o Make parking attractive for both cars and people.
5. Connect all the pieces.
o Storefronts – Sidewalks – Public Space - & Parking….they should all work together and complement each other!

Two street development options are proposed for Main Street to address parking and circulation issues. Option One
consists of the following:
�� 14 ft. Sidewalks; 10 ft. pedestrian way, and 4 ft. furniture zone.
�� Parking; Perpendicular on west side, and parallel on east side
��Two 9 ft. drive lanes
�� One 10 ft. turning/delivery lane

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                     Pendleton Downtown Plan background information
The recommended circulation pattern for SW Main Street is Option One; It includes two travel lanes, one in each
direction, and one center turn lane that can be utilized for deliveries. It also includes parallel parking on the east side of
the street and perpendicular parking on the west side of the street. Recommended pedestrian improvements along SW
Main Street include expanding sidewalks to 14ft. in order to allow for a 10ft. clear walkway and a 4ft. furniture zone
where trees light poles, benches, planters and hanging baskets can be accommodated.
Within the Right-of-Way, intersections should be upgraded with decorative paving (repeated at key intersections) and the
inclusion of landscape islands, or bump-outs, at intersections and key mid-block crossing locations. These islands can be
used to group trees (rather than having trees in grates every 30 feet) or to showcase local art. They also provide a safety
refuge for pedestrians crossing SW Main Street.
                                                    image – page 57of report

                                                   Now that the dimensional requirements have been addressed for SW
                                                   Main Street, the next step is to address creating a walkable, memorable
                                                   downtown area.

                                                   Creating a vision and plan for downtown Pendleton is the easy part of
                                                   the redevelopment process. Implementation of the plan is where ‗the
                                                   rubber hits the road‘ and where commitment and efforts should be
                                                   focused. This section addresses the all-important issue of successfully
                                                   transitioning vision of this Resource Team report into reality.
                                                   In setting the work plan to achieve the vision, the following are
                                                   important considerations to keep in mind:

• Downtown revitalization should be both a public & private effort, with everyone working off the same ‗playbook‘ (plan)
• The city in partnership with downtown stakeholders moves forward with public sector improvements (streetscape,
circulation, public spaces, etc.)
• Community champions partner to lead private sector redevelopment efforts
• All groups should also be regularly communicating with each other on implementation strategies and progress
Strategic Initiative 1: Capital Improvements
This initiative addresses necessary improvements to enhance Pendleton‘s downtown environment. This section includes
action items related to streetscape, open space development, connections, and parking. Capital improvements indicate that
the community has faith in its future and works to improve the local quality of life.
Strategic Initiative 2: Historic Preservation
Historic preservation is an ideal economic development strategy for attracting and retaining small business and leveraging
existing investment in downtown‘s built environment. Moving forward with historic preservation projects through a
partnership with the Landmarks Commission and Urban Renewal Façade Program will help bring downtown back to its
former luster. The steps for Pendleton related to historic preservation are highlighted in this section.
Strategic Initiative 3: Façade and Building Redevelopment
Encouraging façade rehabilitation is a significant part of this report‘s recommendations. In addition, a redevelopment
scheme for 2nd floor development for a prototypical building was developed to show how upper floor redevelopment is
Strategic Initiative 4: Housing Development
A critical strategy in downtown development is the creation of additional housing in a range of product types and price
ranges. It is a proven fact that downtown housing is a contributing factor in the demand for additional shops, services,
entertainment and restaurants.
Strategic Initiative 5: Redevelopment Policies and Tools
Incentives help catalyze redevelopment. In this section they are outlined in one convenient strategy. This section also
outlines policies to assist in decision-making and recommends the reformation of a downtown association.
Strategic Initiative 6: Business Development
There are a number of business mix and clustering opportunities that can be put into motion in downtown Pendleton.
Utilizing the findings and conclusions of the market assessment, the action items will move the economics for downtown
in the right direction.

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                     Pendleton Downtown Plan background information
2006 Community Assessment Findings & Suggestions (Destination Development)
83 suggestions for improving downtown Pendleton – some of which have already been implemented.
27 points on branding and positioning, 25 tips for online promotion

Page 13: The appearance of your streets make a strong statement about your community to visitors. The greater the
―perceived value,‖ the more visitors will spend and the longer they will stay..

Many of the suggestions are oriented toward improving the pedestrian experience through changes in public infrastructure
and private design elements. Emphasis was placed on removing signage on building walls that is ineffective and hides
architectural details, and replacing it with more pedestrian-oriented blade-type signs.

Example cited:
In the 1970s, Greenville, SC (pop 60,000) had a four lane artery with lots of concrete and asphalt, no curb appeal,
declining retail sales and 40-60% vacancy rates, running through downtown. Revitalization efforts began by narrowing
the street to two lanes, adding bulb-outs, angle parking, canopy trees every 30 feet, creating buffers between the parking
and sidewalks. By creating narrower streets, traffic slowed and the overall ambience became more intimate and inviting.
Gradually businesses moved back into downtown Greenville. Greenville is now one of the most popular downtowns in all
of South Carolina.

2008 SW Court Avenue/Umatilla River Parkway Enhancements (Greenworks)
For the better part of a decade, the City of Pendleton has been exploring ways to revitalize the downtown riverfront area
and capitalize on opportunities for economic development, public use, and social and recreational activities.
During the initial stages of the project Greenworks worked with the City to develop four goals essential for enhancing the
identity of a virbrant, livable, inviting downtown – goals that would act as a catalyst for increased economic development
for decades to come:
    1. Linking the community to the Umatilla River
    2. Enhancing Court Avenue and the Riverfront Aesthetics
    3. Creating a safe and vibrant pedestrian environment
    4. Creating a grand sense of arrival to the downtown riverfront area

2009 Downtown Workshop
Revitalization of downtown Pendleton must be focused and systematic. The City‘s limited resources should be directed
toward revitalization strategies for Main Street, the historic heart of the community. Improvements to Main Street will:
    Be catalytic and spur additional private investment throughout downtown
    Reestablish downtown as the economic and cultural center for the city and the region

Main Street Configuration
Investment in a high-quality street environment is essential to the success of the downtown retail environment.
Improvements to the configuration of Main Street should:
     Build upon the investment of existing street improvements
     Provide a safe and comfortable pedestrian environment
     Maintain or expand existing sidewalks
     Incorporate curb extensions
     Include sidewalk seating/dining opportunities
     Replace existing street trees with canopy trees
     Provide parallel on-street parking

2010 River Quarter Enhancement Plan
Adopted October 5, 2010
Available online here. River Quarter

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                     Pendleton Downtown Plan background information
Community meetings, presentations and other citizen involvement relating to this project:
TGM Downtown Workshop May 28, 2010 – final presentation for previous effort

   1. June 24, 2010            Kickoff walking Tour (covered in EO)
   2. June 24, 2010            Advisory Committee meeting #1
   3. July 23, 2010            Open House at East Oregonian
   4. August 16, 2010          Advisory Committee meeting #2
   5. October 18, 2010         Community Open House #1
   6. October 19, 2010         Youth Planning Workshop, McKay Creek School
   7. November 18, 2010        presentation to Pendleton Realtors
   8. December 2, 2010         presentation to morning Kiwanis Club
   9. January 5, 2011          TAC Meeting #3
   10. January 5, 2011         1:00 community meeting at City Hall Community Room (with Susan Bower)
   11. January 25, 2011        2:00 community meeting at Great Pacific (with Susan Bower)
   12. February 4, 2011        2:00 community meeting at Great Pacific (with Susan Bower)
   13. February 8, 2011        presentation to 2020 Committee (with Susan Bower)
   14. February 11, 2011       handed out Open House flyers downtown
   15. February 16, 2011       Advisory Committee meeting
   16. February 16, 2011       Community Open House #2
   17. February 23, 2011       9:00 a.m. community meeting at Cookie Tree (with Susan Bower)
   18. February 21, 2011       presentation to Pendleton Rotary Club
   19. February 24, 2011       9:00 a.m. community meeting at Hamley Coffee House (with Susan Bower)
   20. March 3 and 4, 2011     walked downtown talking and handing out materials (with Susan Bower)
   21. March 9, 2011           Advisory Committee Meeting #4
   22. March 10, 2011          6:30 p.m. community meeting at Prodigal Son (with Susan Bower)
   23. March 16, 2011          presentation at monthly Chamber luncheon (with Susan Bower)
   24. March 29, 2010          7:30 a.m. community meeting at the Rainbow (with Susan Bower)
   25. April 19, 2011          presentation to afternoon Kiwanis club
   26. May 11, 2011            7:30 a.m. community meeting at Rainbow Tavern
   27. May 12, 2011            presentation to National Assoc. of Active and Retired Federal Employees
   28. May 18, 2011            7:00 a.m. community meeting at Rainbow Tavern
East Oregonian (there may be more that I have not documented; letters to the editor and opinion papers not counted)
   1. June 25 (?) 2010 coverage of walking tour
   2. January 6, 2011          (?)
   3. February 23, 2011        editorial after Open House
   4. April 13, 2011           coverage of Joint PC/CC meeting.
   5. May 10, 2011             editorial
KUMA Coffee Hour
   1. May 28, 2010                                                    5. August 27, 2010
   2. June 15, 2010                                                   6. October 18, 2010
   3. July 22, 2010                                                   7. January 10, 2011
   4. August 17, 2010

Emails to individuals and groups are not included in this list. If anyone requested to be included in the email list
for news and notification, they were.

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                     Pendleton Downtown Plan background information
Comments from Scot Siegel, Siegel and Associates

Downtown Pendleton does not have a parking shortage now or in the future, provided the existing supply of parking is
managed wisely. If regulation, pricing, or management is not in the cards, then you could propose repealing the parking
district and require new development to provide off-street parking. But that would compromise the walkability and
historic integrity of the Downtown. It would result in a more suburban pattern of development, or no development at all.
Or you could propose removal of selected blighted, non-historic buildings (funded by taxpayers through eminent domain)
to create more surface parking lots on the periphery for public use. However, Main Street patrons would still have to walk
from their car to the storefront because that new parking would most likely be oriented behind the buildings and away
from the street frontages. The public input from the planning process does not support either option, with the exception of
perhaps removing the old Police Station. Finally, the taxpayers could (heavily) subsidize a parking garage, but that too
would require land acquisition and potential building demolition; plus it does not pencil out per the Market Analysis

Your exhibit illustrating walking distances at a Wal-Mart versus Downtown is helpful. I would not call it preachy. A
picture is worth a thousand words. Why would anyone expect to park directly in front of Great Pacific or Main Street
Diner or the Rainbow every time they visit when they routinely park at least 200'-400' (one to two blocks) away from the
front door at Wal-Mart? And if they are able to park right in front of their Main Street destination nearly every time they
visit, what does that say about Downtown? This is not rhetoric, it is common sense.

Some people apparently do not want wider sidewalks on Main Street, or they do not support converting Main to three
lanes in order to widen the sidewalks there. Is that the general sentiment of the community? If so, then much of Main
Street plan (package of recommended enhancements) is not a good fit for Pendleton. We have exhausted all of the
reasonable Main Street alternatives that have been raised over the past six years. We even considered some options that I
would classify as screwy. The proposal for wider sidewalks is not based on empirical studies or planning guru hokus
pokus (a technical term); it is a carefully considered response to public input on this and two prior studies.

In summary, the three-lane configuration improves pedestrian safety and comfort, and arguably it improves the retail
shopping environment, by calming traffic, decreasing pedestrian (street) crossing distances, and adding space for shopper
(pedestrian) amenities and outdoor business uses, such as sidewalk sales and cafe seating. It also addresses the need for
truck deliveries in the public right-of-way; most service and delivery trucks would be able to use the center lane instead of
double-parking. The last time I checked, our local UPS trucks have both front and side doors. I would be reluctant to
design an entire Main Street around a specific model UPS vehicle or garbage truck. If the current sidewalk width is
maintained, there is not enough room for cafe seating and the four lane configuration of Main Street just encourages
speeding. The traffic volumes now and in the future, per the analysis, do not require four lanes. Again, this proposal is
based on input from Pendletonians who participated in the planning process.

Just to be fair, we know that other cities with a greater concentration of pedestrians often get by with narrower sidewalks.
For example, Portland's NW 23rd, arguably one of that city's most successful neighborhood shopping streets, has 8-10
foot wide sidewalks; that includes furnishings, clear zone, and storefronts. However, NW 23rd does not have enough
room for two people walking abreast (a couple holding hands) to pass another couple walking together or a double-
stroller. It also feels overcrowded at times. The total right-of-way width on 23rd is only 60 feet, I believe, so it is not a
good example for Pendleton. Look at Main Street in other western downtowns (Walla Walla, Logan and Ogden, Boise,
Baker, Hood River, Bend); some of them have room for cafe seating, some do not. It is value judgment and the locals who
participated in this planning process said they would like wider sidewalks.


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                     Pendleton Downtown Plan background information
                             Original Scope of Work for Downtown Plan (grant) project:

City of Pendleton Downtown Plan


The project will result in an adopted Downtown Plan (Plan) to provide compact, transportation efficient commercial and
residential development accessible by public transit, friendly to pedestrians and cyclists and with specific
bike/pedestrian connection to the surrounding neighborhoods.

Ideally, the Plan encompass updates to Goals 5, 8, 9, 10, 11, 12, 13 and 14 elements of the Comprehensive Plan. Plan will
be developed in partnership with the Pendleton Downtown Partnership, Pendleton Chamber of Commerce, other local
stakeholders, and the Oregon Department of Transportation (ODOT), based on community input at open houses and
public meetings.

The City of Pendleton (City) wishes to create a more livable downtown while providing a consensus vision for reinforcing
existing investment and improving economic conditions in the historic core.


Project is to guide the management of existing downtown transportation facilities and the design and implementation of
future facilities for the next 20 years or longer (30 years). The Plan will identify specific improvements and prioritize
transportation projects for inclusion in the City’s Capital Improvement Program, Urban Renewal Plan and Agency’s
Statewide Transportation Improvement Program. The Plan will provide consistency with the state Transportation System
Plan (TSP), including the Amended 2006 Oregon Highway Plan (OHP), and regional plans.

Transportation benefits of the Project are:

   Innovative blending of land use and holistic transportation planning within and approaching the downtown.
   Improved connections between the surrounding neighborhoods and downtown.
   Improved efficiency and safety of downtown transportation facilities.
   Strengthening the downtown while balancing community needs with access issues.
   Improved cooperation between the City and ODOT regarding ODOT rights-of-way within the downtown
   Provide better pedestrian and bicycle access to the downtown (in compliance with OARs 660-012-0015(3)
    and 660-012-045).


The project area encompasses the downtown including the railroad to the north side of the river and SW 6 th to SE 5th
(taking potential redevelopment of the existing railroad switching yard into account as well). The project area analysis
will include commercial areas outside the downtown to evaluate potential code updates.


The City is interested in pursuing a transportation efficient Plan for downtown to target specific public and private
development opportunities for a mixed-use, 24-hour neighborhood that serves as the cultural and commercial core of

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                    Pendleton Downtown Plan background information
the entire region. A comprehensive, integrated Plan to solidify the community’s priorities and goals into an achievable
vision for downtown is needed.

This project will refine the City’s adopted TSP to integrate improved pedestrian and bicycle amenities, street sections,
and parking into a cohesive program for a vibrant downtown. TSP amendments will consist of specific pedestrian and
bicycle facilities and treatments to link downtown destinations to each other and nearby neighborhoods and other
attractions. The Plan will identify and prioritize projects for inclusion into the City’s Capital Improvement Program,
Urban Renewal Plan and ODOT’s Statewide Transportation Improvement Program.

Downtown is traversed by multiple State Highways, with few viable alternative routes. Two ODOT couplets traverse
downtown (State Highways 30 and 37) which serve as connectors for Interstate 84, and Oregon State Routes 11, 37, and
395. Both couplets cross Main Street in downtown Pendleton, and serve as some of the busiest streets in the local grid.
Rather than only concentrate on preservation or enhancement of existing transportation facilities, the project must
consider accommodation of all modes.

The City is constrained regarding transportation options in downtown. The City has a virtually built-out environment,
leaving little room for additional new street development. The City took advantage of the Umatilla River levee, and
created the River Walk trail along its length. The River Walk is a paved path that stretches almost three miles with only
two at-grade street crossings.

In addition to providing a favorable environment for recreation, the River Walk provides easy, safe access to many parts
of town. The City would like to further integrate all modes of travel into downtown with the addition of more pedestrian
and bike-friendly infrastructure. An improved pedestrian landscape that encourages people to live, work, shop and play
downtown, and provide them a choice in how to arrive in downtown is sought.

There is currently no City-operated general public year-round fixed-route transit system and none is planned for the
near future. The existing public bus service provided by the Confederated Tribe of the Umatilla Indian Reservation
(CTUIR) includes several stops in and around downtown. Opportunities to collaborate with the CTUIR should be
explored. Improving access and mobility for transit, walking and bicycling are the most likely ways to provide
transportation options and enhance connections to the downtown.

The City operates a grant-funded dial-a-ride bus and taxi service. The service operates from 1 pm to 5:30 pm on
weekdays and asks for a $1 donation.

Currently, there are no major City transportation improvements planned in downtown. ODOT will begin resurfacing the
two couplets this year, which will include some reverse angle parking on Court Street. The City will work with ODOT to
accommodate identified improvements both on ODOT right-of-way (ROW) and at intersections with City ROW. An
Intergovernmental Agreement with ODOT regarding ROW improvements and intersections may be considered.

Downtown is not just a shopping destination; it is a social destination. Enhanced pedestrian amenities and safety
features contribute to this experience. The City would like to further consider reconfiguration of Main Street to better
accommodate pedestrians, as the City has not yet arrived at a consensus on the direction to pursue.

The downtown area is flat and has sidewalks in place, although many are in poor repair and lack pedestrian (ADA)
ramps. Most sidewalks are narrow, and have become cluttered with utility poles, signage and outdoor seating. Sidewalks
along Main Street are not wide enough to support outdoor seating or street furniture, while allowing pedestrians to
pass. Wider sidewalks along Main Street and other downtown streets would permit a more lively street life, and allow
store owners to enhance their business with outdoor seating and displays.

There are two elementary schools on the periphery of downtown. Improving pedestrian access and mobility within
downtown can help children get around on their own and improve safety for all users.

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                     Pendleton Downtown Plan background information
The City is engaged in Periodic Review. The Comprehensive Plan and implementing ordinances are not consistent with
state law and do not adequately meet local needs, either in focus or practice. Code amendments for the Comprehensive
Plan, Commercial Zones (in particular the downtown C-1 Central Commercial zone), and the TSP are needed.

This project will explore options for bringing more people into downtown, without creating traffic problems. The City
seeks a plan that will provide a consensus vision on the optimal treatment to accommodate all users in downtown, with
a specific focus on improving the experience for pedestrians. An advisory committee, outreach, multiple open houses,
and hearings will ensure that citizens are provided an opportunity to provide input.

A committee has already begun work on implementing an Urban Renewal goal to connect downtown Pendleton to the
Umatilla River. The committee is working on a plan for the lands between the river and Court Street, with a focus on
increasing connections between the two. The committee is considering implementation of a district-specific form-based
code (the SmartCode) to achieve the desired development in this district, and may have draft materials to present by
the end of 2009. This code may form the basis for a form-based code that would apply to the historic district or
potentially the entire C-1 zone.

On top of it all, the City has the 100-year anniversary of the Pendleton Round Up approaching in 2010. The City is on a
roll. The community does not want to lose momentum and is intent on implementing a sound Plan for reinforcing
existing investment and improving the economic conditions in the historic core.


Phase I, the Oregon Downtown Development Association Pendleton Downtown Resource Team Report, was completed
in 2006 along with the Chamber of Commerce sponsored Community Assessment Findings and Suggestions by
Destination Development. These two separate efforts identified common problem areas and opportunities for future

Phase II was a TGM Downtown Workshop conducted by Crandall Arambula in spring 2009. City wishes to proceed
directly from Phase II to develop a cohesive Downtown Plan; issues identified in Phase I and refined in Phase II will
become the basis for the Plan.

The City intends that the project will synthesize ideas prevented in previous studies and those that will be identified and
presented into a comprehensive Downtown Plan with integrated transportation elements and ultimately incorporate
the results through Periodic Review Goals 5, 8, 9, 10, 1,, 12, 13 and 14.

A Technical Advisory Committee (TAC) has already been formed for Periodic Review work. Background documents from
previous downtown work have been posted on the City’s web site along with the TGM Downtown Workshop Report.

The City in conjunction with Pendleton Downtown Partnership is pursuing certification in the Oregon Main Street
Program. The City is fortunate to have a downtown that is not on the brink of collapse. Private efforts at revitalization of
individual buildings in downtown Pendleton are already happening. However, there is a large number of vacant buildings
and storefronts. The City can accommodate significant growth within the existing historic structures.

The City initiated an Urban Renewal District in 2003. Thus far, the District has generated $666,280 in tax increment
funds. $1.8 million dollars have been distributed to private interests as grants for façade renovation projects, and have
also been used for capital improvements to public facilities in the district. A coordinated plan is needed to bring
everything together to assure downtown remains attractive to businesses and customers.

The desired outcome of the Downtown Plan is a recipe for preservation, restoration and adaptive reuse of the assets we
already have, with allowances for complementary new development. The Plan will give priority to creating a compact,
multi-modal, mixed use district that not only accommodates pedestrians and bicyclists but encourages them.

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                    Pendleton Downtown Plan background information
The plan will consider motor vehicles in downtown, and the competing needs of local traffic, through-traffic, and
parking. The City wishes to reinforce downtown as the heart of the community, and make getting there and back
efficient, simple, safe, and even enjoyable. A consensus-based Plan for downtown will focus efforts and further goals for
a revitalized downtown.

Goals for the Project
The City’s goal is to foster an improved economic climate downtown while preserving the existing commercial base and
historic character. Creating a more pedestrian-friendly environment that enhances the pedestrian experience and
encourages people to travel to and within downtown on foot, bicycle and public transit are integral to that goal.

A. Involve local business, property owners, public, local government and others interested in the downtown.
B. Solidify an identity and vision for downtown.
C. Analyze potential transportation connections from within the downtown to river, schools/campus and across
   the railroad.
D. Determine appropriate design for pedestrian, bicycle and transit facilities.
E. Determine internal circulation for local street connections.
F. Determine appropriate land-uses for commercial and downtown districts.
G. Analyze the transportation impacts of land use alternatives and transportation demand management
H. Adopt a downtown plan and implementing code amendments.

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                      Pendleton Downtown Plan background information
National Trust for Historic Preservation            
Over the past 30 years, the Main Street movement has transformed the way communities think about the revitalization and
management of their downtowns and neighborhood commercial districts. Cities and towns across the nation have come to see
that a prosperous, sustainable community is only as healthy as its core.
Getting Started
How to implement the approach in your community
Why Main Streets Matter
We all know where our Main Streets are, but do we know what they are and why they matter? Whether they are named First
Avenue or Water Street or Martin Luther King Boulevard, what they represent is universal. Main Street is the economic engine,
the big stage, the core of the community. Our Main Streets tell us who we are and who we were, and how the past has shaped
us. We do not go to bland suburbs or enclosed shopping malls to learn about our past, explore our culture, or discover our
identity. Our Main Streets are the places of shared memory where people still come together to live, work, and play.
So what is Main Street? The phrase has been used to describe everything from our nostalgic past to our current economic woes,
but when we talk about Main Street®, we are thinking of real places doing real work to revitalize their economies and preserve
their character. Specifically, Main Street® is three things: a proven strategy for revitalization, a powerful network of linked
communities, and a national support program that leads the field.
1. A Proven Strategy: The Main Street Four-Point Approach® The Four Points
     The Main Street Four-Point Approach® is a unique preservation-based economic development tool that enables
     communities to revitalize downtown and neighborhood business districts by leveraging local assets - from historic, cultural,
     and architectural resources to local enterprises and community pride. It is a comprehensive strategy that addresses the
     variety of issues and problems that challenge traditional commercial districts.
2. A Powerful Network: The Main Street Approach in Action
     Main Street is a national movement that has spanned three decades and taken root in more than 2,000 communities - a
     movement that has spurred $49 billion in reinvestment in traditional commercial districts, galvanized thousands of
     volunteers, and changed the way governments, planners, and developers view preservation. Over the past 30 years, the
     National Trust Main Street Center has overseen the development of a national network of coordinating programs that today
     includes 37 statewide programs, seven citywide programs, and two regional programs. These coordinating programs help
     cities, towns, and villages revitalize their downtown and neighborhood business districts. Coordinating program staff help
     build the capacity of local Main Street programs, expand the network of Main Street communities, provide resources and
     technical assistance, and work with the National Trust Main Street Center to explore new solutions to revitalization
     challenges and respond to emerging trends throughout the nation.
3. A Leader for the Movement: The National Trust Main Street Center®
     Since its founding in 1980, The National Trust Main Street Center has been the leader of a coast-to-coast network now
     encompassing more than 2,000 programs and leaders who use the Main Street approach to rebuild the places and
     enterprises that create sustainable, vibrant communities.

The Main Street Four-Point Approach®
For the longest time, we all waited for a white knight to ride into town and fix the problem. But the Main Street people made us
realize that the only way to get it done right was to do it ourselves."
Russell Thomas, mayor of Americus, Georgia

As a unique economic development tool, the Main Street Four-Point Approach® is the foundation for local initiatives to
revitalize their districts by leveraging local assets—from cultural or architectural heritage to local enterprises and community
The four points of the Main Street approach work together to build a sustainable and complete community revitalization effort.
Organization establishes consensus and cooperation by building partnerships among the various groups that have a stake in the
commercial district. By getting everyone working toward the same goal, your Main Street program can provide effective,
ongoing management and advocacy for the downtown or neighborhood business district. Through volunteer recruitment and
collaboration with partners representing a broad cross section of the community, your program can incorporate a wide range of
perspectives into its efforts. A governing board of directors and standing committees make up the fundamental organizational
structure of volunteer-driven revitalization programs. Volunteers are coordinated and supported by a paid program director.
This structure not only divides the workload and clearly delineates responsibilities, but also builds consensus and cooperation
among the various stakeholders.
Promotion takes many forms, but the goal is to create a positive image that will rekindle community pride and improve
consumer and investor confidence in your commercial district. Advertising, retail promotions, special events, and marketing
campaigns help sell the image and promise of Main Street to the community and surrounding region. Promotions communicate

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                      Pendleton Downtown Plan background information
your commercial district's unique characteristics, business establishments, and activities to shoppers, investors, potential
business and property owners, and visitors.
Design means getting Main Street into top physical shape and creating a safe, inviting environment for shoppers, workers, and
visitors. It takes advantage of the visual opportunities inherent in a commercial district by directing attention to all of its
physical elements: public and private buildings, storefronts, signs, public spaces, parking areas, street furniture, public art,
landscaping, merchandising, window displays, and promotional materials. An appealing atmosphere, created through attention
to all of these visual elements, conveys a positive message about the commercial district and what it has to offer. Design
activities also include instilling good maintenance practices in the commercial district, enhancing the district's physical
appearance through the rehabilitation of historic buildings, encouraging appropriate new construction, developing sensitive
design management systems, educating business and property owners about design quality, and long-term planning.
Economic Restructuring
Economic restructuring strengthens your community's existing economic assets while diversifying its economic base. This is
accomplished by retaining and expanding successful businesses to provide a balanced commercial mix, sharpening the
competitiveness and merchandising skills of business owners, and attracting new businesses that the market can support.
Converting unused or underused commercial space into economically productive property also helps boost the profitability of
the district. The goal is to build a commercial district that responds to the needs of today's consumers.
Coincidentally, the four points of the Main Street approach correspond with the four forces of real estate value, which are
social, political, physical, and economic.

The Eight Principles The Eight Principles
The National Trust Main Street Center's experience in helping communities bring their commercial corridors back to life has
shown time and time again that the Main Street Four-Point Approach succeeds. That success is guided by the following eight
principles, which set the Main Street methodology apart from other redevelopment strategies. For a Main Street program to be
successful, it must whole-heartedly embrace the following time-tested Eight Principles.
 Comprehensive: No single focus — lavish public improvements, name-brand business recruitment, or endless promotional
  events — can revitalize Main Street. For successful, sustainable, long-term revitalization, a comprehensive approach,
  including activity in each of Main Street's Four Points, is essential.
 Incremental: Baby steps come before walking. Successful revitalization programs begin with basic, simple activities that
  demonstrate that "new things are happening " in the commercial district. As public confidence in the Main Street
  district grows and participants' understanding of the revitalization process becomes more sophisticated, Main Street is able to
  tackle increasingly complex problems and more ambitious projects. This incremental change leads to much longer-lasting and
  dramatic positive change in the Main Street area.
 Self-help: No one else will save your Main Street. Local leaders must have the will and desire to mobilize local resources and
  talent. That means convincing residents and business owners of the rewards they'll reap by investing time and money in Main
  Street — the heart of their community. Only local leadership can produce long-term success by fostering and demonstrating
  community involvement and commitment to the revitalization effort.
 Partnerships: Both the public and private sectors have a vital interest in the district and must work together to
  achieve common goals of Main Street's revitalization. Each sector has a role to play and each must understand the other's
  strengths and limitations in order to forge an effective partnership.
 Identifying and capitalizing on existing assets: Business districts must capitalize on the assets that make them unique.
  Every district has unique qualities like distinctive buildings and human scale that give people a sense of belonging. These
  local assets must serve as the foundation for all aspects of the revitalization program.
 Quality: Emphasize quality in every aspect of the revitalization program. This applies to all elements of the process — from
  storefront designs to promotional campaigns to educational programs. Shoestring budgets and "cut and paste" efforts
  reinforce a negative image of the commercial district. Instead, concentrate on quality projects over quantity.
 Change: Skeptics turn into believers and attitudes on Main Street will turn around. At first, almost no one believes Main
  Street can really turn around. Changes in attitude and practice are slow but definite — public support for change will build as
  the Main Street program grows and consistently meets its goals. Change also means engaging in better business practices,
  altering ways of thinking, and improving the physical appearance of the commercial district. A carefully planned Main
  Street program will help shift public perceptions and practices to support and sustain the revitalization process.
 Implementation: To succeed, Main Street must show visible results that can only come from completing projects. Frequent,
  visible changes are a reminder that the revitalization effort is under way and succeeding. Small projects at the beginning of
  the program pave the way for larger ones as the revitalization effort matures, and that constant revitalization activity creates
  confidence in the Main Street program and ever-greater levels of participation.

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                     Pendleton Downtown Plan background information
National Complete Streets Coalition

Complete Streets Fact Sheets

The Coalition has developed a series of fact sheets covering topics such as economic revitalization, climate change, and
health. Many of these documents explore the many benefits of complete streets, while others focus more on
implementation. Below is a listing of all fact sheets available for download; please pass them around! Each of the below
―web‖ links includes the text of each fact sheet as well as a list of additional related resources.
 Children (web | pdf)                                                Lower Transportation Costs (web | pdf)
 People with Disabilities (web | pdf)                                Ease Traffic Woes (web | pdf)
 Older Adults (web | pdf)                                            Costs of Complete Streets (web | pdf)
 Health (web | pdf)                                                  Change Travel Patterns (web | pdf)
 Public Transportation (web | pdf)                                   Create Livable Communities (web | pdf)
 Climate Change (web | pdf)                                          Sustainable Complete Streets (web | pdf)
 Economic Revitalization (web | pdf)                                 Networks Complete Streets (web | pdf)
 Gas Prices (web | pdf)                                              Rural Areas and Small Towns (web | pdf)
 Safety (web | pdf)

Benefits of Complete Streets
Complete streets can offer many benefits in all communities, regardless of size or location.

       Complete streets make economic sense. A balanced transportation system that includes complete streets can
        bolster economic growth and stability by providing accessible and efficient connections between residences,
        schools, parks, public transportation, offices, and retail destinations.
       Complete streets improve safety by reducing crashes through safety improvements. One study found that
        designing for pedestrian travel by installing raised medians and redesigning intersections and sidewalks reduced
        pedestrian risk by 28%.
       Complete streets encourage more walking and bicycling. Public health experts are encouraging walking and
        bicycling as a response to the obesity epidemic, and complete streets can help. One study found that 43 percent of
        people with safe places to walk within 10 minutes of home met recommended activity levels, while just 27% of
        those without safe places to walk were active enough.
       Complete streets can help ease transportation woes. Streets that provide travel choices can give people the option
        to avoid traffic jams, and increase the overall capacity of the transportation network. Several smaller cities have
        adopted complete streets policies as one strategy to increase the overall capacity of their transportation network
        and reduce congestion.
       Complete streets help children. Streets that provide room for bicycling and walking help children get physical
        activity and gain independence. More children walk to school where there are sidewalks, and children who have
        and use safe walking and bicycling routes have a more positive view of their neighborhood. Safe Routes to School
        programs, gaining in popularity across the country, will benefit from complete streets policies that help turn all
        routes into safe routes.
       Complete streets are good for air quality. Poor air quality in our urban areas is linked to increases in asthma and
        other illnesses. Yet if each resident of an American community of 100,000 replaced one car trip with one bike trip
        just once a month, it would cut carbon dioxide (CO2) emissions by 3,764 tons per year in the community.
        Complete streets allow this to happen more easily.
       Complete streets make fiscal sense. Integrating sidewalks, bike lanes, transit amenities, and safe crossings into
        the initial design of a project spares the expense of retrofits later. Jeff Morales, former Director of Caltrans, said,
        ―by fully considering the needs of all non-motorized travelers (pedestrians, bicyclists, and persons with
        disabilities) early in the life of a project, the costs associated with including facilities for these travelers are

           All materials are available online on the Planning Department web page.                      14

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