Pendleton Downtown Plan

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Plan Area

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 (see Figure 1). The Plan District applies to three subareas: the Downtown Core—the area between SW 2nd Street and SE 2nd Street, and SE Court Avenue extended to SE 3rd; the Railroad Subdistrict—generally bound by Frazier Avenue and Goodwin Avenue and extending from SW 3rd Street to SE 2nd Street; and the Umatilla River Subdistrict—an area that contains the Umatilla River and extends from SW 6th Street to SE 2nd Street and from Court Avenue to Bailey Avenue (see Figure 1).


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.
Outreach Workshop

Prior to commencing the Downtown Plan, the City worked with the TGM Program to conduct an Outreach Workshop. The initial workshop in 2009 was organized to discuss assets, issues and opportunities within the downtown area. Preliminary recommendations introduced at that time and explored further during the Downtown Plan process include:

  • Improved pedestrian and bicycle connections to and across the Umatilla River;

  • Opportunities for a riverfront park;

  • Opportunities for a public plaza on Main Street;

  • Potential locations for a parking structure; and

  • Streetscape improvements along South Main Street that would accommodate
    bicycle facilities.

Downtown Plan Development

Whereas the first TGM grant supported initial outreach and education, the second TGM grant, an Integrated Land Use & Transportation Planning grant, supported development of the Downtown Plan. The Downtown Plan process evaluated and refined the initial outreach work and led to this document, portions of which will be incorporated into Pendleton’s Comprehensive Plan and land use regulations.

The Plan is intended to enhance multi-modal transportation, livability, and economic viability and improve the pedestrian experience within the Downtown area. The City and TGM Program hired a consultant team (led by Siegel Planning Services LLC, in association with MIG, Inc., Kittelson and Associates, FCS Group and Tahran Architecture & Planning) to facilitate the process, provide technical expertise and prepare the plan.

The Plan is the culmination of feedback and insight gathered in a community-based effort that incorporated a variety of methods designed to encourage participation and community buy-in. These included meetings and workshops with staff, business leaders and residents. The planning process and meeting announcements were posted on the city’s website, mailed to property owners and businesses, and published in the East Oregonian. In addition, City staff attended meetings of local businesses and neighbors to answer questions and solicit input on the plan.



Technical Advisory Committee (TAC)

A technical advisory committee assembled by the City reviewed project technical reports and proposed concepts and provided input throughout the planning process. The TAC included the City project manager, stakeholders from the Plan Area, the TGM grant manager, representatives from the Department of Land Conservation and Development, ODOT, Pendleton Chamber of Commerce, Pendleton Downtown Partnership and the Confederated Tribes of the Umatilla Indian Reservation, and members of the consultant team.

Planning Context

The Pendleton Downtown Plan builds upon other previous planning efforts, particularly the Pendleton Downtown and Riverfront Urban Renewal Plan (2003); and more recently the River Quarter Enhancement Plan (2010). The Urban Renewal Plan contains goals, objectives and suggested projects, as well as an overview of the existing conditions of the downtown. The overall objective of the plan is to provide the tools necessary to “promote the vitality of downtown and the Umatilla riverfront as the cultural and tourism center of the Pendleton community.” The River Quarter Plan contains a vision, recommended streetscape and park improvements, and a regulatory framework plan and zoning overlay for the south Umatilla Riverfront along SW Court Avenue between South Main Street and SW 10th Street.
Other relevant planning documents were reviewed in preparation for the current planning effort and include the following (in chronological order):
  • Comprehensive Plan, City of Pendleton, 1990

  • Pendleton Downtown Business Survey, 2000

  • Community Assessment Findings & Suggestions, 2006

  • Pendleton Downtown Resource Team Report, 2006

  • City of Pendleton Transportation System Plan, 2007

  • City of Pendleton, TGM Outreach Workshop Summary Memorandum, 2009

Plan Overview

This Plan is organized into seven chapters:
Chapter 1: Introduction

This chapter describes the purpose and role of the Pendleton Downtown Plan; the planning area; plan process; strategic implementation approach; and organization of this document.

Chapter 2: Vision, Goals & Objectives

This chapter presents the community’s vision for Downtown Pendleton, and establishes goals and objectives to guide the community in realizing the vision.

Chapter 3: Plan Framework

This chapter presents an Overall Framework and Downtown Development Concept that solidify the key components of the vision.

Chapter 4: Multi-Modal Circulation and Parking

This chapter contains a detailed strategy for circulation and parking in the Downtown, including recommended modifications to Main Street and overall multi-modal circulation improvements, including improved access and connectivity for pedestrians, bicyclists, transit, automobiles, and service and delivery vehicles.

Chapter 5: Streetscapes, Open Space and Public Art

This chapter makes recommendations for the design of the public realm of the Downtown, including the public and private spaces between buildings and streets, improvements to the street rights-of-way, parks, plazas, pedestrian access ways, and parking lots.

Chapter 6: Land Use, Built Form and Zoning

This chapter recommends changes to the City of Pendleton Comprehensive Plan and Zoning Ordinance necessary to implement the recommendations outlined in previous chapters.

Chapter 7: Implementation Strategy

The final chapter of the plan provides a detailed Action Plan that includes planning-level cost estimate for prioritized public capital projects, phasing and a funding strategy.


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