Commercial development strategyKing Neighborhood Association

District I

King neighborhoodcommercialcenter

commercial development strategyKing Neighborhood AssociationDistrict I

King NeighborhoodCommercialCenter

April 28, 2000

PORTLAND DEVELOPMENT COMMISSION

Felicia TraderExecutive DirectorMichael McElweeProject Manager

Lois CortellProject Coordinator

ACKNOWLEDGEMENTS

CONSULTANT TEAMLloyd Lindley

Lloyd D. Lindley, ASLAJoan Brown-Kline

Brown-Kline & CompanyDenise Whitney

E. D. Hovee & Co.Steven Foust

Steven L. Foust , BLA

KING NEIGHBORHOOD ASSOCIATION - DISTRICT I

COMMERCIAL DEVELOPMENT STRATEGY COMMITTEE

Jana BaumanResident

Edgar BoldenResident

Tom ClarkResident

Kathleen DonohueNorth/Northeast Business Association

Daryl GarnerProperty/Business Owner

Diana McKnightResident/Business Owner

Gloria McMurtryResident/Business Owner

Angie PaulsonKing Neighborhood Association

Jan PierceResident

Dwayne PratherMultnomah County

Jason RobertsKing Neighborhood Association Land-Use Co-Chair

Kent SieboldResident

On behalf of the King Neighborhood Visioning Committee and the Consultant team, we thank everyone who participated ina process that will help shape the King neighborhood and enhance the lives of its residents. And, a special thanks goes toJennifer Siebold who wrote the grant and received the funds from the Portland Development Commission for this work.

The Vision

New commercial development between Garfield and Martin Luther King Jr.Boulevard complements the scale and architectural character of the Kingneighborhood and adjacent single-family residences. Businesses and resi-dences are linked by active and visible connections for the convenience ofresidents and employees who live and work in the King Neighborhood.

Convenient on- and off-street parking is located near commercial and retailuses away from single-family residences. Structured parking is accessedfrom east/west streets and contains active ground floor uses along streetfronts and pedestrian links.

Public open space provides a place for a variety of community and neighbor-hood uses. Plazas and other open spaces are managed and programmed forneighborhood activities and gatherings. New commercial architecture shouldreflect the cultural richness, people, history and unique place of the KingNeighborhood.

CONTENTS

INTRODUCTION 1Background 2Process 3

HISTORY, PROJECT AREA AND ZONING 4History 4Project Area 7Zoning 8

VISION AND GENERAL DEVELOPMENT PRINCIPLES 10The Vision 10General Development Principles 11

MARKET OPPORTUNITIES 18Market Profile 18Development Potential 20Sketch Pro Forma and Use Opportunities 21

CONCEPTS 22Concept A-1 22Concept A-2 24Concept B-1 26Concept B-2 28Potential Phasing Opportunities 30

ACTIONS AND IMPLEMENTATION 32Action Chart 32Implementation Strategy 32

NEXT STEPS 33Development 33Transportation 33Streetscape and Urban Design 33

APPENDIX 35Case Studies

1

Ensure the King Neighborhood’s improvement and growth as a vital neighborhood in the heart of Portland’sAlbina Community. As the King Neighborhood physically improves also improve the economic conditions forKing’s residents. Use the King Neighborhood Plan to guide decisions on land use, capital improvementprojects, urban renewal and community development activities within King.

King Neighborhood Plan Objectives, Adopted October 1993

INTRODUCTIONUpon completion of this report, the Portland Develop-ment Commission (PDC), in conjunction with KNVCmembers, plans to prepare a “Request for Develop-ment Proposals” for Portland Development Commis-sion holdings. This document will supplement theRequest for Development Proposals and the KNVCis expected to participate throughout the selectionand development process.

A unified concept site plan is provided and demon-strates common open space and circulation thatwhen completed would provide continuity andappropriate transitions to the residences to the west.

In 1999, the King Neighborhood Association-District1 received a grant to identify ways to revitalize threeblocks between NE Alberta and Killingsworth andMartin Luther King Jr. Boulevard and Garfield. AKing Neighborhood Vision Committee (KNVC)comprised of local business owners, King Neighbor-hood residents and property owners worked overseven months to craft a Vision, General Develop-ment Principles and design concepts of desireddevelopment programs for the three-block area.

Planning-level market analysis helped define themarket profile, development potential and createdsketch pro forma for concept use opportunities.

Outreach to the neighborhood included door-to-doordistribution of information and fliers by King resi-dents, the King Neighborhood newsletter, and aneighborhood-wide mailing for an open house whichover 50 people attended at Walnut Park East Pre-cinct community room. Results from the open houseand a project calendar were included in the KingNeighborhood newsletter. The King Neighborhoodnewsletter reaches residents in all five neighborhooddistricts. Press releases with the Vision and GeneralDesign Guidelines were sent to the N/NE BusinessAssociation newsletter, the Skanner and Observer.

The development strategy recommends a block-by-block approach that would allow each block toredevelop independently while progressively achiev-ing the common vision. The preferred developmentconcept includes a mix of commercial and retail useswith a combination of surface and structured parking.The commercial and retail uses would be neighbor-hood scale and provide goods and services for localresidents.

Over the past decade, the blocks betweenAlberta and Killingsworth along Martin LutherKing Jr. Blvd. have been incrementally improving.

Project Area

2

Background

The Albina Community Plan and the King Neighbor-hood Plan identify Alberta to Killingsworth alongMartin Luther King Jr. Boulevard as the primarycommercial node within the 3.5 mile corridor. TheAlbina Community Plan designates this area as aCity Focal Point, a Neighborhood Gateway and aplace to develop a Major Attraction. A City FocalPoint is a place that is highly recognizable withmeeting places, landmarks and centers for commu-nity activities. Neighborhood Gateways are localfocal points that are highly recognized for serving asa community meeting place with a village square,shopping and recreational opportunities. MajorAttractions are places that expect to draw peoplefrom the community, region and state.

Over the past decade, incremental change progres-sively transformed the east side of Martin LutherKing Jr. Boulevard. The Walnut Park redevelopmentproject initiated the rebirth of the Martin Luther KingJr. Boulevard and Killingsworth intersection. TheBlazer Boys and Girls Club reinforced the communitygathering space in the Walnut Park Center. Morerecently, Adidas built a new store on the Albertacorner of the Boulevard. New housing to the southand east of the Boys and Girls club added to adynamic and successful horizontal mix of neighbor-hood-scale uses. In 1998, the City created the N.E.Martin Luther King Jr. Boulevard TransportationProject that found innovative ways to restore on-street parking in commercial nodes, improve thecorridor for pedestrians and improve the nightexperience by adding pedestrian scale street lightingin commercial nodes. The Boulevard carries ap-proximately 30,000 cars per day which is compa-rable to traffic volumes on Broadway and Weidler inthe Lloyd District where neighborhood-scale retailand dining services are reemerging.

The three blocks of the project area on the west sideof the boulevard provide an opportunity to createcommercial and retail activity that would complementand balance the improvements on the east side ofthe Boulevard ultimately creating the envisionedcommercial node. Today, the Multnomah Countybuilding at Killingsworth acts as a northern anchor toa mix of industrial, retail, residential and vacantbuildings. Some of the properties are “soft” withredevelopment potential while others like the Mult-nomah County building contain important communityprograms and services that should remain in thearea.

This Commercial Development Strategy explains theVision, General Development Principles and desiresof the King Neighborhood-District 1. Actions andprograms are outlined to enable the Portland Devel-opment Commission to implement projects onproperties they control and to guide new or redevel-opment projects on other parcels as opportunitiesarise.

The Multnomah County building at the upper left and MarcoMachine Works in the center occupy a significant portion of theproject area.

Today, Living Color occupies an older single-story, brick buildingat Alberta and Martin Luther King Jr. Boulevard.

3

Process

This development strategy builds upon substantialpast work in the Albina Community Plan, the KingNeighborhood Plan and the Martin Luther King Jr.Boulevard Transportation Project. A focused butinclusive process helped the KNVC work throughand reconcile desires, issues, opportunities andconstraints. The KNVC met every other week forseven months to craft the Vision, General Develop-ment Principles and explore potential developmentopportunities.

A meeting protocol was established to assure thatinterested parties’ comments and questions re-ceived attention. Five minutes at the beginning andend of each meeting were set aside for interestedparties’ participation. Meeting notes were recordedand circulated by mail and at the following meeting.

A series of workbooks provided instructive andnecessary information for the KNVC members,beginning with a Briefing Packet containing relevantexcerpts from past planning documents, the City’szoning code and other policy documents that wouldultimately influence decisions by the committee.Workbooks titled “A Brief History,” “DevelopmentPrinciples and Patterns” and “Case Studies”provided relevant and committee-requested infor-mation.

“A Brief History” explained the evolution of thebusinesses and buildings within the study area.

“Development Principles and Patterns” provokeddiscussions regarding the character and quality offuture development on the three blocks. It alsoaddressed access, architectural scale, transitionsand connections between the neighborhood andcommercial uses and the influence of new develop-ment on Martin Luther King Jr. Boulevard.

“Case Studies” included recent mixed-use develop-ments with similar characteristics and neighbor-hood relationships that could serve as models forredevelopment within the study area. Some of theexamples focused on uses while others illustratedcharacteristic transitions between commercial andretail development adjacent to single-family resi-dential housing. The workbooks were available toall who attended the KNVC meetings.

KNVC meetings followed a work session formatwhere hands-on exercises enabled participants tocontribute to the content of the Vision and Principlesand to directly influence the shape and configurationof the potential development scenarios. Workbooksof the development scenarios contained illustrationsof the committee’s ideas that helped facilitate KNVCdecision-making.

To attract public comment and input, illustrateddisplays of the Vision, General Development Prin-ciples, market analysis and development conceptswere hung on the walls of the East Precinct commu-nity room at Walnut Park. KNVC members led OpenHouse discussions at various stations where thepublic was encouraged to comment on thecommittee’s work. A tabulation of public commentsprovided guidance for the KNVC’s recommendations,which are presented in this report.

The King Neighborhood Vision Committee met every other weekto develop and review the contents of the commercial develop-ment strategy.

4

HISTORY, PROJECT AREAAND ZONINGThe King Neighborhood

How do we harness and sustain the enthusi-asm, nurture the fragile businesses and turnissues into opportunities?

King Neighborhood and Martin Luther King Jr.Boulevard are changing. A few years ago neighborswere asking themselves and the City what they coulddo to bring prosperity and greater livability to theirchronically troubled and unstable neighborhoods.

History

To better understand where new development typesshould evolve, it is important to review historic urbanpatterns that have shaped the Northeast communityover the past several decades. Influences that affecttoday’s urban landscape began in 1924 with thezoning code revisions enacted by a City PlanningCommission dominated by the Realty Board. Thezoning revisions were a boon to realtors and thedemise of many inner-city neighborhoods. – “Allstreets, upon which main or through streetcar lineswere located, were rezoned to business”.1 Streetssuch as Martin Luther King Jr. Boulevard weredesignated for commercial and industrial use - zone3. This rezoning action ignored the consequences tosingle family residential neighborhoods and waslargely blamed for the decline of many Portlandneighborhoods.

Portland’s inner city simultaneously contains thecity’s oldest and newest neighborhoods. Sometimesreferred to as “stopover neighborhoods,” theseneighborhoods are in constant evolution. Over theyears, these neighborhoods provided affordablehousing and job opportunities to a transient popula-tion where immigrants and their children lived andworked but did not settle permanently. Newcomerswould use the housing for a year or a decade to learnthe rules of their new home and to land a decent jobbefore finding a better house in a better neighbor-hood.

Martin Luther King Jr. Boulevard between Alberta and Killing-sworth in 1945. Note large buildings lining both sides of thestreet. Fred Meyer and the bank stand at the corner of MartinLuther King and Killingsworth.

The Fields Motor Co. showroom was located on the corner ofAlberta and Martin Luther King Jr. Boulevard, shown above in1927.

Alberta

Killingsworth

MLK

1 E. Kimbark MacColl, The Growth of a City, The Georgian PressCo., Portland, Oregon; 1979

5

In early streetcar days Engine Company #14 wassituated amongst retail, commercial and residentialproperties at the corner of Alberta and Martin LutherKing. In the 1920’s, Fields Motor Car Companylocated a two-story Chevrolet showroom also at theintersection of Martin Luther King and Alberta. Thefrontage along Martin Luther King between just southof Alberta and just north of Killingsworth providedservices and entertainment to the surroundingneighborhoods. These businesses also servedtransit patrons of the Portland Traction Company’sRailway and Bus lines that converged on this com-munity center.

In 1930, the area around Killingsworth and Alberta atMartin Luther King Jr. Boulevard contained thehighest concentration of foreign-born residentsoutside of downtown. Fred Meyer built a 13,200square foot department store on the corner ofKillingsworth and Martin Luther King. The storeserved surrounding neighborhoods with 20 depart-ments and off-street parking. Union State Bankoperated in an Art Deco-style building on the north-west corner across from Fred Meyer. By today’sstandards, Walnut Park could be considered one ofPortland’s earliest multi-modal centers. It was also amain street with banking, shopping and a theater.

Union State Bank was an elegant Art Deco building with verticallines that accented the facade of the building. Later razed, thesite now has a modern Wells Fargo bank.

Engine Company #14 sat at the corner of Martin Luther King andAlberta around the turn of the century. Streetcar tracks can beseen in the foreground.

Fred Meyer was the cornerstone of the neighborhood with 20 departments to serve shoppers. This building was razed to make wayfor the Walnut Park store.

6

The mission of the KNVC was to identify a fullcomplement of uses and to build on the vitality andenthusiasm that spurred this process.

In the late 1980’s, after serving the area for morethan a half century, Fred Meyer, one of the area’sanchor department stores, chose to leave. One ofthe last economically stabilizing businesses in thearea closed. Instead of ringing the death knell for thecommunity, the company’s action became a call-to-arms, not only to neighbors but also to city agencies.

In 1993, the City Council adopted a fourth amend-ment to the Oregon Convention Center UrbanRenewal Area Plan which reaches up the MartinLuther King Jr. Boulevard corridor to PortlandBoulevard. The results of the urban renewal planand other revitalization programs are only recentlybeing seen. Urban renewal has enabled the PDC toassist with renovation and redevelopment of under-developed projects. It has also brought employmentprograms and storefront improvement grants that areimproving the image of the corridor.

In April 1998, the PDC accepted the “Martin LutherKing Jr. Boulevard Commercial Development Strat-egy” that places the study area in Segment 3 -”Walnut Park Commercial Core.” Target businesses

for this segment are identified as neighborhood/destination retail, family restaurants, pharmacy andcinema.

Today, the stopover neighborhoods are becomingmore and more permanent as land and housingcosts rise. What was once an inexpensive tempo-rary home is now likely to be handed down to thenext generation. And as transportation costs andcongestion increase, the desire to live, work, shopand play nearby may also lead to more stableneighborhoods.

While Walnut Park contains some of the basicneighborhood services that help strengthen thecommunity it does not provide the full complement ofretail, shopping and entertainment uses that buildidentity and foster a sense of permanence.

Martin Luther King Jr. Boulevard Commercial Development Strategy, April 1998

Note: Grow Biz International is a parent company of five franchises - Play It Again Sports, Computer Renaissance,Dis Go Round, Once Upon a child, and Music Go Round.

7

Project Area

The commercial development strategy focused onthe Blocks 9, 10 and 25 between Killingsworth andAlberta and Martin Luther King Jr. Boulevard andGarfield. These blocks are located about 5 minutesnorth of the Lloyd District and about 10 minutes fromdowntown Portland. Portland International Airport iswithin 10 to 15 minutes and convenient access toInterstate 5 is available on both Alberta and Killing-sworth. Regular north/south and east/west Tri-Metbus service is available. Transit service wouldimprove with the completion of the proposed Inter-state Avenue MAX line, which would connect thestudy area to employment centers in the eastern andwestern reaches of the metropolitan region.

The three-block project area is adjacent to significantnew development. Walnut Park, which redevelopedin 1995, contributed to attracting the Blazer Boys andGirls Club and the Adidas store that are acrossMartin Luther King Jr. Boulevard from the projectarea.

Today, the three-block project area contains a mix ofuses including retail, commercial, industrial, county-provided community services and single familyresidential homes. The single-family residences onthe east side of Garfield are not part of the urbanrenewal area but are part of this project in that theproject concepts preserve and protect these proper-ties.

Garfie

ld

MLK

Project Area

Project Area

Killingsworth

Emerson

Sumner

Alberta

Walnut Park

Boys and Girls Club

Adidas

Marco MachineWorks

MultnomahCounty

Living Color

8

Zoning

Zoning changes in the study area accompanied theadoption of the Albina Community Plan in 1993. TheAlbina Community Plan evolved from an extensivethree-year process. This strategy assumes that thezoning will remain consistent with the Albina Commu-nity Plan and existing City zoning maps.

The Albina Community Plan identifies this stretch of Martin Luther King Jr. Blvd. as a City Focal Point withsupporting plan elements such as Minor Attractors and a Neighborhood Gateway.

Killingsworth

Alberta

MLK

LEGEND

City Focal Point

Major Attractor

Neighborhood Gateway

9

EXd - Mixed-use area in an overall industrial-typesetting, allows a full range of industrial and commercialdesignations. The Design Overlay Zone promotesconservation, enhancement and continued vitality ofareas of the City with special scenic, architectural orcultural value and requires design review or compliancewith the Community Design Standards to ensure infilldevelopment will be compatible with the neighborhoodand enhance the area.

Existing zoning is General Commercial (CG) on the Multnomah County Block while the two southerly blocksare designated Central Employment (EX) . Block numbers are indicated in the center of each block.

LEGEND

CGdh General CommercialEXd Central EmploymentEXdh Central EmploymentR2.5 Residential 2,500R5 Residential 5,000a Alternative Design Density Overlayd Design Overlay Zoneh Aircraft Landing Zone

Alberta

Killingsworth

MLK

Project Area

Block 9

Block 10

Block 25

10

VISION AND GENERALDEVELOPMENTPRINCIPLES

The Vision

New commercial development between Garfield and Martin Luther King Jr.Boulevard complements the scale and architectural character of the KingNeighborhood and adjacent single-family residences. Businesses and resi-dences are linked by active and visible connections for the convenience ofresidents and employees who live and work in the King Neighborhood.

Convenient on- and off-street parking is located near commercial and retailuses away from single-family residences. Structured parking is accessedfrom east/west streets and contains active ground floor uses along streetfronts and pedestrian links.

Public open space provides a place for a variety of community and neighbor-hood uses. Plazas and other open spaces are managed and programmedfor neighborhood activities and gatherings. New commercial architectureshould reflect the cultural richness, people, history and unique place of theKing Neighborhood.

11

Land Use – Provide phased developmentthat is consistent with the existing zoningand land use designations.

General DevelopmentPrinciples

The King Neighborhood Plan and Albina Community Plan, adopted in October 1993, helped guide the King Neighborhood CommercialDevelopment Strategy.

Previous and On-going Plans – Respectand incorporate relevant previous planningwork, current work and on-going efforts.The King Neighborhood Plan and the AlbinaCommunity Plan are the primary planningreferences for this strategy.

12

Center Focus – Develop a center and focusfor the King Neighborhood within a three-block area.

The center focus could serve everyday traffic circulation but could also provide a place for special community events.

One “central focus” opportunity may lie within the vacated Sumnerright-of-way where formal and informal open space could provideidentity and contribute to the shared community.

MLK

13

Mix of Uses – Encourage a dynamicvertical and horizontal mix of uses thatprovide neighborhood services,multipurpose space, entertainment andhousing. Provide goods and servicesdesired by the neighborhood withopportunities for locally-owned businessesand family-wage employment for North/Northeast Portland residents.

Development – Develop each block to itsfull potential, consistent with theneighborhood scale. Activate streetfrontages on Martin Luther King Jr.Boulevard, Alberta and Killingsworth. Striveto develop active street frontages with retailand commercial uses.

Belmont Dairy provides a local example of a vertical and horizontal mix of retail, commercial and residential uses.

A minimum of 15-foot-wide sidewalks abutting storefronts withactive retail and commercial uses on Martin Luther King Jr.Boulevard would help enliven and connect the east and westsides of the commercial node.

14

Neighborhood Diversity – Reflect thehistory, heritage and cultural diversity of theKing Neighborhood and North/NortheastPortland in the architecture of newdevelopment.

Public Art – Integrate artists into the siteand architectural design process.

Mural by Isaka Shamsud-din on the east side of Martin Luther King Blvd. near Shaver.

Ceramic tile at Walnut Park by BabaWague Diakite’.

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Traffic and Transportation – Discouragethrough traffic and protect the neighborhoodfrom the infiltration of traffic. Provide in-creased opportunities for safe pedestriancrossings at intersections, including thosewith special needs.

Access – Utilize central access that caneliminate commercial shipping, receiving,parking and storage adjacent to or on publicstreets and minimize neighborhood impacts.

Parking – Provide off-street parking for newdevelopments. Encourage shared parkingto maximize land area for development.

Protect the pedestrian and residential qualities of Garfield.

Create off-street parking with internal circulation that ultimatelyconnects the entire three-block area. Create a central feature thatprovides traffic circulation and can also accommodate specialevents.

Sumner

Emerson

MLK

16

Shared Community – Create a variety ofpublic places that foster a sense of sharedcommunity. Provide corner building accessindentations and public spaces that inte-grate new development with the existingKing Neighborhood and local businesses.

Transitions – Develop the scale and articu-lation of commercial building forms to blendwith single-family residential propertiesacross the street on Garfield. Reinforcevisual and physical connections acrossMartin Luther King Jr. Boulevard to create acohesive commercial place.

Access ways would provide pedestrian and bicycle connectionsbetween the neighborhood and the Boulevard. They would alsoprovide an opportunity for public open space.

Corners would provide space for outdoor dining, meeting andpublic art. Stepping architectural elements would help provide atransition from larger retail and commercial buildings to the single-family residences of the neighborhood.

17

Open space could occupy vacated right-of-way on Sumner. Avariety of passive spaces would enable multiple uses.

Open space could follow a linear concept that connects theneighborhood to businesses and the Boulevard. Space wouldbe available for a play structure, seating and bike parking.

Open Space – provide a variety of largeand small open spaces such as outdoorperformance space, a play area and ampleplaces for dining and sitting for neighbor-hood, business and visitor use.

Open spaces would provide places for neighbors to meet, sit,stroll or play. A play structure would provide a space for youngpeople.

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MARKET OPPORTUNITIES

Market Profile

The King Neighborhood and surrounding primaryand secondary market areas are in transition.Historically, this area suffered from a transientpopulation that, combined with progressively debili-tating factors such as the Minnesota Freewayconstruction, Emanuel Hospital Urban Renewal andelimination of on-street parking on Martin Luther KingJr. Boulevard, led to a depressed real estate andbusiness market. Over the past decade, planningwork and public/private partnerships producedreinvestment throughout the corridor. Newer devel-opments such as McCoy Village, Wygant Corners,

Alberta Simmons Plaza, State Farm InsuranceClaims Center, Adidas, Small Parts Manufacturing,Nike and Standard Dairy are contributing to the goalsof the 1998-MLK Commercial Development Strategyand creating significant redevelopment momentum inthe area.

The Multnomah County building currently containsimportant community services that are reliant on theconvenient transit service and the accessible loca-tion. However, the building is an important compo-nent in the commercial development strategy as it islocated at the 100 percent retail/commercial corner,was once an anchor retail use and contains substan-tial leaseable square footage. Redevelopment wouldrequire preserving the County’s communirty serviceswithin the immediate area.

In order to complete the KNVC planning process, ademographic and economic profile of the market wasdeveloped. These market areas included:• A ¼-mile walking radius from the site.

• A 1-mile radius or the primary market area fromwhich the project could expect to draw custom-ers for day-to-day convenience goods andservices.

• The secondary market area from whichbusinesses may draw clientele for comparison ordestination shopping.

Note: Map is representational and not to scale.

Columbia Blvd

Lombard St

Portland Blvd

Killingsworth St

Fremont St

Alberta St

Broadway St

I-5

I-84

Secondary Market Area

Skidmore St Prescott St

Del

awar

e A

ve

Bur

rage

Ave

Gre

eley

Alb

ina

Ave

MLK

Blv

d

15th

Ave

33rd

Ave

18th

Ave

Thompson St

24th

Ave

N

Quarter MileWalking Distance

Primary Market Area(1 mile)

Martin Luther King Jr. Blvd. Market AnalysisPrimary Market/Leakage Analysis Area

N

19

All three market areas have been and are forecast tocontinue to experience increases in population,household income and home ownership.

The market within walking distance of the proposedsite is forecast to experience population growth at aslightly faster average annual rate (0.7%) over thenext five years than either the primary (0.6%) orsecondary market (0.5%) areas.

As of 1999, median household incomes in the marketareas were significantly lower than the MultnomahCounty median of $38,100. However, the gapbetween incomes in the project market areas and thecounty are getting smaller. The ¼-mile and primarymarket areas have experienced and are expected tocontinue to experience higher absolute and percent-age increases in median household income than thesecondary market area or county.

Demographic & Economic Profile of Market Areas

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• Retail nursery/lawn and garden• Women’s clothing• Family shoes• Furniture and nonelectric home furnishings (including floor coverings)• Refreshment places (coffee or sandwich shops)• Sporting goods (not apparel)• Gift and novelty items• Jewelry store• Video rental business• Fitness facility• Entertainment• Family restaurant• Grocery store• Professional office

Important community services are provided from theMultnomah County building including Aging andDisabilities Services, Health Department, and Loavesand Fishes. Approximately 80 employees provideservices and receive 300 visits per day.

Early sketch concept used to illustrate committee members’ideas.

The KNVC felt that many residents travel outside theKing Neighborhood to shop for basic needs such asgroceries, pharmaceuticals and other conveniencepurchases and services. This observation is reflectedin the results of a market analysis developed for theMartin Luther King Jr. Boulevard (MLK) CommercialDevelopment Strategy in 1997.

Each person in a given geographical area has moneyto spend and chooses where to spend that money.The amount of money residents spend outside theirmarket area is referred to as sales leakage. Underthese circumstances, the buying power of thecommunity is leaking to other geographic areas.

The 1997 market analysis determined there wassignificant sales leakage from the MLK primarymarket area to the Lloyd District, downtown Portland,and Hayden Meadows/Jantzen Beach areas. Theanalysis translated the sales leakage into the numberof additional businesses, by type, that could besupported by the combined buying income of MLKprimary market area residents.

The results indicated that the MLK market area,which includes the primary market area, wasunderserved by at least 33%. In other words, arearesidents could support up to 144 more businessesthan the 290 identified as currently operating onMLK and portions of Alberta.

In addition, future market area income and businesspotential were estimated. By the year 2015, the MLKprimary market area potentially could support acumulative total of up to 207 added businesses.

The Commercial Development Strategy also identi-fied the area from Alberta north to Portland Boule-vard, in which this project study area falls, as thecommercial retail core or hub of the MLK corridor.Businesses identified as potential targets for thissection of MLK fit the Vision Statement and GeneralDevelopment Principles developed by the KNVC.

Development Potential

The businesses identified include neighborhood anddestination grocery, retail, family restaurants, phar-macy, and cinema. Additional businesses that thearea desires and could support include:

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Sketch Pro Forma and UseOpportunities

A number of illustrative development concepts wereproduced to help KNVC members visualize mixed-use scenarios. A series of five sketch pro formaswere developed to provide a preliminary evaluationof the financial feasibility of mixed-use scenarioswith surface or structured parking. These proformas showed that the cost associated withstructured parking could not be supported by localrental rates despite the associated increase inallowable development on the site. However, mixed-use development with surface parking appeared tooffer a sufficient rate of return.

In addition, the KNVC members directed the con-sultants to include more public space in the sce-narios. Two additional sketch pro formas weredeveloped to provide a preliminary evaluation of thefinancial feasibility of including developer-fundedpublic spaces in mixed-use scenarios with surfaceparking. These pro formas indicated a potential pre-tax rate of return on equity of 9-10%, suggestingsome type of assistance would likely be necessaryto provide the desired public spaces and a reason-able rate of return.

Early sketch concept showing full usage of all nonresidentialparcels.

Early sketch concept that demonstrated a housing project on thenorthern block.

Early example of surface parking configuration.

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CONCEPTS

A considerable number of concepts were illustratedto help KNVC members and the public visualize thescale and mass of various mixed-use scenarios.Illustrations also helped to stimulate discussionregarding the location of uses, parking, open spaceand the relationship of new or redevelopment oppor-tunities to adjacent residences. Two concepts, withvariations, help demonstrate the range of opportuni-ties discussed by the KNVC and are provided toguide potential development proposals for the three-block area. Most of the sketches are interchange-able between concepts.

Concept A-1

This concept envisions a north and south anchor withsmall-scale retail or commercial uses between. Theconcept suggests filling the Multnomah County blockwith commercial and retail uses. (County servicesare assured to remain within the immediate area.)The two southerly blocks demonstrate redevelop-ment in a linear form with surface parking behind.

Redevelopment of the Multnomah County building would provide opportunities for a northern anchor to the project area. The KNVCenvisions a cinema, galleries, restaurants or retail shopping. New uses would potentially be supported by structured parking on thewest side. Exisiting Multnomah County community services would be relocated within the immediate geographic area.

Birds-eye view showing potential parking structure on the westside of the Multnomah County building.

Vacation of Sumner would enable an open spaceconnection between the neighborhood and theBoulevard. Sumner would realign with Sumner onthe east side of Martin Luther King Jr. Boulevard andbe designed to minimize undesirable traffic move-ment. Other traffic calming devices may occur onGarfield at Sumner and Emerson.

Row housing would infill on vacant parcels alongGarfield. Other uses would include a grocery store,one or two restaurants and small retailers.

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Surface Parking

Multnomah Co.

Emerson

Sumner

Surface Parking

Row Houses

Commercial Retail

Row Houses

Surface Parking

Open Space

Alley with Parking

Access Way

Commercial Retail

Surface Parking

Corner Plaza

Landscape

Alberta

Killingsworth

MLK

Block9

Block25

Block10

Concept A-1

NORTHN. T. S.

24

Concept A-2

Concept A-2 is linear with a large scale north anchorand a composite anchor in the south. The compositeanchor would include a medium-sized grocery storeand complementary retail or commercial use on thecorner of Alberta and Martin Luther King Jr. Boule-vard.

Parking would be located to the side and in the rearof uses. The alley would be off-set to limit cut-through traffic.

Open space would connect the neighborhood to theBoulevard. Pedestrian walks would connect theentire project area. Row housing would infill vacantparcels along the east side of Garfield, providing ascale and use transition between commercial andretail uses and the single-family neighborhood.

Night view of the Martin Luther King Jr. Boulevard and Albertagateway. Public art and architecture could create a strikingentrance into Walnut Park and the Alberta corridor.

Concept sketch view looking northwest at Martin Luther King Jr.Boulevard and Alberta.

25

Surface Parking

Multnomah Co.

Emerson

Sumner

Surface Parking

Row Houses

Commercial/Retail

Row Houses

Surface Parking

Open Space

Commercial/Retail

Alley with Parking

Access Way

Row Houses

Surface Parking

Commercial/Retail

Landscape

Alberta

Killingsworth

MLK

Block9

Block10

Block25

Concept A-2

NORTHN. T. S.

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Concept B-1

Concept B-1 would be anchored at the north andsouth ends of the project area. The north anchorcould accommodate a medium to large retail use or asmall cinema with structured parking.

The southern anchor may contain a grocery storewith a small cultural center component supported bystructured parking. The center of the project areawould accommodate a variety of medium and smallretail or commercial spaces with employment orresidential uses above.

The concept follows a curvilinear form thatcould create a central open space andentry feature. Primary access wouldbe on Alberta and Killingsworth withconnections to an internalcirculation system thatwould link all uses.

The above concept drawing depicts potential redevelopment of the three block area. The northern block at the corner of Killings-worth and MLK illustrates a small 3 to 4 screen cinema with structured parking. The center block demonstrates a single story retailbuilding with surface parking behind. The southern block shows a grocery store with a cultural center component that would markthe gateway at the corner of MLK and Alberta.

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Structured Parking

Multnomah Co.

Emerson

Sumner

Surface Parking

Row Houses

Commercial Retail

Row Houses

Open Space

Surface Parking

Alley with Parking

Access Way

Commercial Retail

Structured Parking

Corner Plaza

Alberta

Killingsworth

MLK

Block9

Block10

Block25

Concept B-1

NORTHN. T. S.

28

Concept B-2

Concept B-2 would be anchored at the north andsouth ends of the project area. The north anchorcould accommodate a medium retail use or officewith surface parking.

The southern anchor may contain a grocery storewith a small cultural center component supported bysurface parking. The center of the project areawould accommodate a variety of medium and smallretail or commercial spaces.

The concept follows a curvilinear form that couldcreate a central open space and entry feature.Primary access would be on Alberta and Killings-worth with connections to an internal circulationsystem that would link all uses.

Architecture at the corners of Martin Luther King Jr. Boulevard at Alberta and at Killingsworth would provide a signature gateway tothe King Neighborhood, the King commercial node and help create a special identity for the area.

Block 10 would contain a mix of retail and commercial spacewith surface parking. Row houses would infill vacant propertiesalong Garfield.

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Surface Parking

Multnomah Co.

Emerson

Sumner

Surface Parking

Row Houses

Commercial Retail

Row Houses

Center Focus

Open Space

Alley with Parking

Commercial Retail

Access Way

Surface Parking

Corner Plaza

Landscape

Alberta

Killingsworth

MLK

Block9

Block10

Block25

Concept B-2

NORTHN. T. S.

30

Potential Phasing Opportunities

Concepts are illustrated to demonstrate individualparcel and block development. Each concept showsconfigurations that enable blocks to be incrementallyand independently developed. However, consistentlydesigned parking, right-of-way and open spaceimprovements would contribute to the continuity andoverall visual identity of the three-block area. Con-cept sketches are provided to demonstrate howdesired program elements would fit and how theVision and General Development Principles can beapplied to potential developments within the studyarea.

Block 25: Concept A-1

Alley with Parking

Access Way

Commercial Retail

Surface Parking

Corner Plaza

Landscape

View looking northwest from Alberta and MLK.

Sumner

Alberta

MLK

31Block 25: Concept B-2

Block 25: Concept A-2

Commercial/Retail

Alley with Parking

Access Way

Row Houses

Surface Parking

Commercial/Retail

Landscape

Alley with Parking

Commercial Retail

Access Way

Surface Parking

Landscape

View looking northwest from Alberta and MLK.

View looking northwest from Alberta andMLK.

MLK

MLK

Alberta

Alberta

Sumner

Sumner

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ACTIONS AND IMPLEMENTATION

33

NEXT STEPS

The King Neighborhood Association - District 1Commercial Development Strategy is consistent withthe Albina Community and King Neighborhood Plansand implements applicable Actions and Policies fromthose plans. The Development Strategy now goes tothe King Neighborhood Association Board of Direc-tors for adoption and then to the PDC and CityCouncil for acceptance. Once accepted, the PDCshould take the following steps to implement thestrategy:

Development1. Work to assemble properties and encourage

partnerships on Block 25 for developmentand redevelopment.

2. Prepare and issue a Request for Proposal fordevelopment of Block 25 that concurs withplanning documents and this strategy.

3. Work to assemble nonresidential parcels andencourage partnerships on Block 10.

4. Work to encourage partnerships on Block 9.5. Work to acquire and assemble other key

parcels and encourage partnerships.

Transportation1. Develop a strategy for creating additional

public parking and management of public andprivate parking resources including but notlimited to shared parking. Investigate ways toreduce employee parking demand includingcar/van pools, shuttle vans and transitincentives.

2. Work with property owners to vacate SumnerStreet between Martin Luther King Jr. Blvd.and Garfield.

3. Conduct a traffic analysis to assure left turnsfrom Martin Luther King Jr. Blvd. to SumnerStreet. Also analyze realignment of access tothe study area to coincide with Sumner on theeast side of Martin Luther King Jr. Blvd.

4. Identify funding sources for improvements.5. Continue the current improvements on Martin

Luther King Jr. Blvd. to reinstate on-streetparking between Alberta and Killingsworth.

Streetscape and Urban Design1. Continue the current improvements on Martin

Luther King Jr. Blvd. from Alberta to Killing-sworth with cast-iron single ornamentalstreetlights, street trees, tree grates andother pedestrian improvements.

2. Prepare a unified site plan for public openspace and internal pedestrian, bicycle andvehicular circulation.

For additional information andcontinued involvement, contact:

Michael McElweePortland Development Commission

1900 SW Fourth Avenue, Suite 7000Portland OR 97201

503-823-3351

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APPENDIX

Union State Bank was an elegant Art Deco building with vertical lines that accented the facade of the building. Later razed, the sitenow has a modern Wells Fargo bank.