Pendleton Downtown Plan

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Pendleton Downtown Plan | Revised Draft Plan | April 2011

City of Pendleton Council and Mayor

Mayor Phillip Houk

Justin Pearce - Member at Large

John Brenne - Ward I

Becky Marks - Ward I

Bryan Branstetter - Ward II

Dan Ceniga - Ward III

Keith May - Ward II

Al Plute - Member At Large

Neil Brown - Ward III
City of Pendleton Staff

Larry Lehman, City Manager

Evan MacKenzie, City Planner (Project Manager)

Bob Patterson, Public Works Director

Tim Simons, Director of Community Development

Pete Wells, City Attorney
Downtown Plan Technical Advisory Committee

Parley Pearce Leslie Carnes

Dan Ball Barbara Wright

Ken Schulberg Carol Hanks

Jill Gregg Art Hill

Tracy Bosen Marjorie Iburg

John Huddleston Chuck Wood

Jennifer Guenther Jon Peterson

Joy Marcum Keith May

Patty Perry Tamra Mabbott

Susan Bower Jennifer Hawkins

Owen Smith Butch Thurman

Jill Thorne Andrew Picken

Al Plute Cheryl Doyle

Terry Murry Marcy Rosenberg

Downtown Merchants Technical Advisory Committee

Alan Feves Bruce Gianotti
Second Downtown Plan Technical Advisory Committee

Dan Ball Greggory Dallas

Alan Feves Dean Fouquette

Ron Gavette Bruce Gianotti

Tim Guenther Marjorie Iburgg

Jerry Imsland James Naughton

Rod Parker Ken Schulberg

Karen Wagner

Oregon Department of Transportation

Cheryl Jarvis-Smith, Senior Planner, ODOT Region 5
Department of Land Conservation & Development

Grant Young, Field Representative, Eastern Oregon
Consultant Team:

Siegel Planning Services

Scot Siegel (Consultant Project Manager)

MIG, Inc.

Jay Renkens

April Brewer

Rachel Edmonds

Kittelson and Associates, Inc.

Matt Hughart

FCS Group

Todd Chase

Tahran Design

Ralph Tahran

This project is partially funded by a grant from the Transportation and Growth Management (TGM) Program, a joint program of the Oregon Department of Transportation and the Oregon Department of Land Conservation and Development. This TGM grant is financed, in part, by federal Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU), local government, and the State of Oregon funds.


The Pendleton Downtown Plan builds on earlier community visioning, and refines previous plan recommendations, based on a market study and traffic analysis. The Downtown Plan builds upon previous planning efforts. The plan refines recommendations made in the 2007 Transportation System Plan while prioritizing projects for the City’s Capital Improvement Program, Urban Renewal Plan and ODOT’s Statewide Transportation Improvement Program. The Pendleton Downtown Plan Area is generally bounded by the Umatilla River to the north, the Union Pacific Railroad to the south, SW 6th Street to the west, and SE 6th Street to the east. The Plan District also includes some properties on the north shore of the Umatilla River immediately west of North Main Street.

The Pendleton Downtown Plan process consisted of formal and informal meetings and events spanning approximately two years and including hundreds of participants. It is the product of a partnership between the City of Pendleton, the Pendleton Downtown Partnership, Oregon Department of Land Conservation and Development (DLCD) and the Oregon Department of Transportation (ODOT). It was made possible by two grants from the state’s Transportation Growth Management (TGM) Program. Resolves key issues related to design and function of Main Street, including creating an attractive shopping environment with adequate parking, sidewalks, cafe seating areas, bicycle facilities, and civic space for special events.
The Plan articulates the community’s vision for Downtown Pendleton in the following statement:
Downtown Pendleton is an authentic place with a unique identity that is celebrated by its mix of civic uses, businesses and housing, as well as new and historic architecture, pedestrian-friendly streetscapes, variety of open spaces and public art. The Downtown is well connected to adjacent neighborhoods, provides safe, inviting and convenient options for all modes of travel, and enjoys seamless ties to the Umatilla River, Round-Up, Underground Tours and Museum/Railroad District. Residents and visitors alike are attracted to an inclusive and vibrant environment that exemplifies the spirit of Pendleton.

The Downtown Plan prioritizes public capital improvements and policy recommendations for multi-modal circulation and parking; streetscapes, open space and public art; and land use, built form and zoning based on realistic funding options. To maximize limited resources and leverage existing assets, the Plan’s recommendations emphasize maintenance of and updates to existing infrastructure –including streets, parks, plazas, and pathways – rather than the creation of new public spaces. The improvements were tailored to Downtown Pendleton to support existing businesses and residents while preserving and enhancing the many historic assets that are unique to Pendleton.
The multi-modal circulation and parking element of the Downtown Plan emphasizes two primary concepts: 1) “walk first” and 2) “park once.” Walking should be the most attractive and convenient option to get between destinations within Downtown. For those individuals who access Downtown by car, it is important to be able to find convenient parking within easy walking distance of shops and services, allowing them to “park once” and leave their vehicle parked until leaving Downtown.

The streetscape, open space and public art element of the Plan focuses on major improvements that are intended to improve the overall attractiveness and comfort of Downtown for residents and visitors alike. The recommended improvements include: 1) targeted streetscape improvements to Main Street to improve the pedestrian environment, and slow traffic and provide spaces that are more conducive to restaurants and retailers spilling out onto the sidewalk; 2) bicycle boulevard treatments – a combination of lane markings indicating streets are shared by bicyclists and motorists; enhanced signage and wayfinding; and additional bicycle parking – for SW 1st Street and SE 1st Street to better accommodate north-south bicycle travel and to link downtown to the River Parkway trail; 3) improvements to surface parking lots to provide summer shade (reduce the heat island effect), improve aesthetics and attract additional users who currently circulate in search of on-street parking spaces; 4) enhancements to the River Parkway and a series of related improvements that will provide connections to the Umatilla River; 5) improvements to existing parks and plaza spaces, including improvements to spaces at street corners and at mid-block pedestrian crosswalks; 6) introduction of art in public spaces to which may help tell the Pendleton story. 7) improvements to Centennial and Stillman Parks;

Although previous planning efforts have resulted in recommendations for a new centrally located plaza space, the Downtown Plan provides for conversion of an improved Main Street to a "festival street.” A festival street is designed to allow for a partial or full closure of the street to motor vehicles for use during community events. Removable bollards will help facilitate a flexible streetscape environment and a combination of materials, furnishings, landscaping, utilities and an integrated sound system will make Main Street an ideal location for community events.
Based upon a market study of expected growth in Pendleton and the proportion of new development that can be expected in Downtown, no structured parking is required over the 20-year planning horizon. With proper management and other aesthetic and functional improvements, existing on-street and off-street surface parking can accommodate existing and near future demand for parking in the Downtown. A proposed zoning code amendment extends the existing parking district to the full Downtown Plan area a more uniform area, exempting the entire this area from requirements to provide off-street parking.
The Downtown Plan recommends several additional changes to zoning that will reduce or remove existing obstacles to downtown revitalization. The recommendations are intended to encourage adaptive reuse of upper building stories for housing, new development oriented to the Umatilla River, mixed-use infill development at key locations, parking lot beautification, additional walkway connections, and other improvements.

Finally, the Plan provides an implementation strategy with costs, phasing, funding, and roles and responsibilities of participants. [While public outreach efforts during the Downtown Plan’s development were fruitful and informative in the process of formulating proposals, more outreach needs to be done to communicate specific implications of possible projects. The Downtown Plan’s Technical Advisory Group will initiate future outreach efforts to various stakeholder groups to determine how to best prioritize plans and phasing for proposals described in this document. This will further the goal of an open, inclusive and deliberative planning process.]

Table of Contents
Acknowledgements i

Executive Summary iii

Table of Contents v
Chapter 1: Introduction 1

Project Purpose 3

Plan Area 3

Process 6

Planning Context 9

Plan Overview 9

Chapter 2: Vision, Goals & Objectives 11

Vision 13

Goals & Objectives 13
Chapter 3: Plan Framework 17

Concept Overview 19

Multi-Modal Circulation and Parking 23

Streetscapes, Open Space and Public Art 24

Land Use, Built Form and Zoning 24
Chapter 4: Multi-Modal Circulation and Parking 29

Multi-Modal Circulation Plan 31

Street Modifications 31

Transit 36

Traffic Signal Progression 39

Downtown Parking Plan 39

Access Management Plan 40

Chapter 5: Streetscapes, Open Space and Public Art 41

Streetscape Design 43

South Main Street 43

South Main Street Option – Festival Street 45

SW 1st Street and SE 1st Street Improvements 49

Parking Lot Improvements 50

Umatilla River Sub-District Improvements 51

South Side of the River 51

North Side of the River 52

Public Spaces 57

Railroad Sub-District 57

Chapter 6: Land Use, Built Form and Zoning 61

Current Land Uses 63

River Quarter Enhancement Plan 64

Future Land Uses 67

Redevelopment Opportunity Areas 67

Built Form 68

Comprehensive Plan Amendments 71

Zoning Ordinance Amendments 72

Background and Approach to Zoning 72

Proposed Elements of Zoning 74

Chapter 7: Implementation Strategy 77

Action Plan 79

Strategic Planning Actions 79

Community Investments 80

Planning-Level Cost Estimates 83

Funding Source and Financing Strategy 84

Funding Sources 84

Financing Strategy 85

Prioritization and Phasing 86
Appendix A – Cost Estimates A-1
Appendix B – Market Opportunity and Analysis Study/Visitor Survey B-1
Appendix C – Transportation Alternatives Analysis C-1

Appendix D – Funding and Implementation Strategy Memo D-1


The City of Pendleton, officially incorporated in 1880, is the county seat of Umatilla County. Rich in history and lore, the City nurtures a successful tourism industry that showcases its colorful, pioneer past. Year 2010 marked the 100-year anniversary of the Pendleton Round-Up, one of the top rodeos held in North America. The Pendleton Chamber of Commerce estimates that total visitation during the week of the Round-Up (second full week of September) in 2010 exceeded 75,000 visitors. Other top visitor attractions include the Pendleton Woolen Mills factory, the Children’s Museum and the legendary Pendleton Underground Tours (the latter two of which are located Downtown). As the city has grown and evolved over the last century, it has successfully retained much of the architectural character of its early pioneer days.

The Umatilla River, situated on the north edge of the Study Area, provides respite and recreation for residents and visitors alike. The River Parkway provides a healthy environment for residents and visitors to stroll along the banks of the Umatilla and enjoy recreational activities such as walking, jogging and bicycling. Small parks adjacent to the river help connect the Parkway to downtown. And during major events, such as the Farmers’ Market and Roundup, portions of Main Street close are closed to vehicles.

Project Purpose

In the summer of 2010, the City of Pendleton began work to prepare the Pendleton Downtown Plan. The City aimed to develop a plan for a vibrant, economically viable, mixed-use downtown that is bike-, pedestrian- and transit-friendly with connections to surrounding neighborhoods and the Umatilla Riverfront. From the outset, the City wanted to develop a consensus vision that supports existing investments and nurtures economic development and historic preservation. The Downtown Plan builds upon previous planning efforts. The plan refines recommendations made in the 2007 Transportation System Plan while prioritizing projects for the City’s Capital Improvement Program, Urban Renewal Plan and ODOT’s Statewide Transportation Improvement Program.

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