HomeMy WebLinkAboutField Guide Existing Conditions Analysis 2025-12-24(DRAFT) Lake Oswego Foothills PlanFIELD GUIDE
INVENTORY & ANALYSIS
December 24, 2025
ATTACHMENT 8/PAGE 1 OF 124
TITLE
City Council:
Joe Buck, Mayor
Ali Afghan
Trudy Corrigan
Massene Mboup
Aaron Rapf
Rachel Verdick
John Wendland
Planning Commission:
Don Mitchell, Chair
Rachel Naujock, Vice Chair
Diana Moreno
James Bruce
James Thwing
Jeremy Slyh
Brian Guiney
Community Advisory Committee:
Randy Arthur, Chair
Lisa Shaw Ryan, Vice Chair
Joe Buck
Rachel Naujock
Jeff Gudman
Jymn Meier
Ken Sandblast
Keely O’Brien
Melissa J. Williams
Shail Brixey
Monica Goodwin
Meetal Salunkhe
Trell Anderson
Kara Orvieto
Michaeleen McNerney
Technical Advisory Committee:
Johanna Hastay, Planning Manager
Stefan Broadus, Public Works
Kyra Haggart, Park Analyst/Project Manager
Abi Thyer-Ohly, Asset Manager
Amanda Watson, Sustainability Program Manager
Matthew Amos, Fire Marshal
Michael Haftorson- 100 Foothills Rd (Lakeshore
Concrete)
Rich Martin- 220 Foothills Rd
Technical Advisory Committee: cont.
Stacy Humphrey, Metro (Planning)
Jamuna Golden, Metro (Parks)
Alex Page, TriMet (Service Planning)
Kenny Werth- ODOT Reg.1 (Planning)
Carrie Martin- ODOT Reg.1 (Rail)
Elizabeth Mros-O’Hara- Metro / LO Trolley Consortium
Nicole Nathan, LO Arts Council
Alexis Barton-Castro, Tryon Creek Watershed Council
Syringa Volk & Ken Spencer, PGE
City of Lake Oswego
Erik Olson, Project Manager
eolson@lakeoswego.city
Jessica Numanoglu
Director | Community Development Department
Stefan Broadus, Public Works Special Projects Manager
Cristina Siquina Calderón, Administrative Support |
Planning & Building Services
Metro, Regional Government
Stacy Humphrey, Metro Program Project Manager
Prepared by First Forty Feet, for the City of Lake Oswego with a grant
provided by Metro and in partnership with:
APEX Companies, Environmental Engineering Solutions
ECOnorthwest
DHM Research
DCW Cost Estimating
First Forty Feet contacts:
Will Grimm, RA- Project Director
will@firstfortyfeet.com
Jason Graf, ASLA- Project Manager
jason@firstfortyfeet.com
Ramin Rezvani, RA- Architectural Building Design
Tyler Sauter, RA-Senior Urban Designer
ACKNOWLEDGMENTS
ATTACHMENT 8/PAGE 2 OF 124
INTRODUCTION 6
DISTRICT HISTORY & BASE MAPPING
District History 10
Base Mapping 14
SITE CONDITIONS
Geotechnical Analysis 24
Environmental Hazardous Materials Corridor 28
Study
Natural Systems 30
FEMA Floodplain 40
2 TRANSPORTATION
Existing Transportation System 46
2025 Traffic Conditions 54
Future District Access Considerations 56
Planned and Potential Transportation 59
Improvements
Parking 66
INFRASTRUCTURE
Stormwater 72
Sanitary Sewer 74
Water Supply 76
Franchise Utilities 77
Tryon Creek Wastewater Treatment Plant 78
LAND USE
Existing Plans/Policies 82
Existing Zoning 86
Current Uses and Development Patterns 88
Parks & Open Space 92
Comparison of Policy Context 96
Education 100
2 ECONOMIC, MARKET & FUNDING
OPPORTUNITIES
Market Context 108
Housing Market Findings 110
Retail Market Findings 112
Developer Advice to the City 113
Funding Considerations 113
2 OPPORTUNITIES & CONSTRAINTS
Site Constraints 116
Site Opportunities 119
CONTENTS
TITLE
ATTACHMENT 8/PAGE 3 OF 124
LIST OF FIGURES
Fig. 1: Project Area 7
Fig. 2: Missoula Floods 10
Fig. 3: Oregon Portland Cement Company 10
Fig. 4: Oswego Point/Roehr Park - Oregon
Iron & Steel Co. in 1880s 10
Fig. 5: Lake Oswego Country Club
District Promotion 11
Fig. 6: Willamette River Flood-1996 12
Fig. 7: Foothills District Framework-
Master Plan (2012) 13
Fig. 8: Foothills District- Sub-Areas 15
Fig. 9: Foothills District Ownerships 16
Fig. 10: Foothills District Existing Uses 17
Fig. 11: Foothills District Juriducations
and Agencies 19
Fig. 12: Revised Concept Plan (2012) 20
Fig. 13: Foothills District Plan Update-
Focus Areas 21
Fig. 14: Foothills District Geologic Map 24
Fig. 15: Foothills District Slope Map 25
Fig. 16: Foothills District Historical Seismicity 25
Fig. 17: Foothills District Liquifaction Hazard Map 26
Fig. 18: Foothills District Flood Map 26
Fig. 19: Foothills District Hazardous
Materials Corridor Study Map 29
Fig. 20: Foothills District Setting and Context 30
Fig. 21: Foothills District- Topography 31
Fig. 22: Foothills District- Soil Stability 32
Fig. 23: Foothills District- Climate 33
Fig. 24: Foothills District- Tree Canopy 34
Fig. 25: Foothills District-Wetlands &
Waterways Map 35
Fig. 26: Foothills District- Wetlands &
Waterways Regulations Map 36
Fig. 27: Parks, Open Space and Ecology Map 38
Fig. 28: Floodplain Map 43
Fig. 29: Vehicular Access Map 47
Fig. 30: Transit Map 49
Fig. 31: Pedestrian Map 51
Fig. 32: Bicycle Map 52
Fig. 33: Trails Map 53
Fig. 34: Traffic Study Intersections Map 55
Fig. 35: 2012 Preferred North Portal Access 57
Fig. 36: 2010 Proposed Street Car Alignment 58
Fig. 37: 2020 OGLO Proposed Bridge
Crossing (Metro) 59
Fig. 38: Planned Frog Ferry Docks and
Boarding Plan 61
Fig. 39: Proposed Frog Ferry Dock-Foothills Park 61
Fig. 40: Existing Foothills Park Dock 62
Fig. 41: Planned Tryon Creek Crossing & Trail 64
Fig. 42: Planned Tryon Creek Bridge Site 64
Fig. 43: Existing Stormwater Map 73
Fig. 44: Existing Sanitary Sewer Map 75
Fig. 45: Existing Potable Water Map 76
Fig. 46: Existing Private Utility Map 77
Fig. 47: Existing Tryon Creek TCWTP 78
ATTACHMENT 8/PAGE 4 OF 124
Fig. 48: Existing Comprehensive Plan Map 83
Fig. 49: Existing Zoning Map 87
Fig. 50: Existing Uses Map 89
Fig. 51: Existing Improvement to Land
Value Ratio Map 90
Fig. 52: 2012 Planned Connections 92
Fig. 53: 2012 Proposed Tryon Creek Crossing 92
Fig. 54: Existing Parks and Open Space 93
Fig. 55: Existing Foothills Park 94
Fig. 56: Existing Mouth to Tryon Creek 94
Fig. 57: Income and Education 108
Fig. 58: Population and Households 108
Fig. 59: Employment by Sector 109
Fig. 60: Visitation Trends 109
Fig. 62: Multi-family Rent Per Square Foot 110
Fig. 61: Single-Family Characteristics 110
Fig. 63: Multi-family Vacancy Rate 110
Fig. 64: Multi-family Housing Characteristics 111
Fig. 65: Housing Affordability 111
Fig. 66: Housing Need 111
Fig. 67: Retail Rent Per Square Foot 112
Fig. 69: Retail Vacancy Rate 112
Fig. 68: Retail Absorption 112
Fig. 70: Single Access 116
Fig. 71: Railroad Barrier 116
Fig. 72: Waste Water Treatment Plant 117
Fig. 73: Steep Slopes 117
Fig. 74: Sensitive Lands 118
Fig. 75: Buffers 118
Fig. 76: 1996 Flood 118
Fig. 77: Potential Access 119
Fig. 78: Fill & Reduced Flood Risk 120
Fig. 79: Natural System Integration 120
Fig. 80: Waterfront Assets 121
Fig. 81: Interconnected Trail Network 121
Fig. 82: Potential Water-Based Ferry
(Frog Ferry) 122
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 5ATTACHMENT 8/PAGE 5 OF 124
INTRODUCTION
The Foothills District Field Guide provides an inventory & analysis
of current conditions within the Foothills District that are integrated
with key findings and conclusions from the adopted 2012 Foothills
District Plan and relevant plans and policies that inform future district
planning.
This composite report and its corresponding appendix establishes a current “baseline” of existing
conditions that builds on previous work and will inform updates to the infrastructure plan and
development scenario adopted in 2012.
To ensure a thorough understanding of site constraints and opportunities, the Consultant team
analyzed physical conditions including soils suitability, groundwater dynamics, environmental
hazards, stream corridors, wetlands, riparian habitats, and broader natural systems.
A detailed review of existing transportation infrastructure identified the current conditions and
considerations for addressing challenges and opportunities with regard to streets, freight, transit,
bicycle, and pedestrian networks. Additionally, utility systems—public and private—such as water,
wastewater conveyance, stormwater management, power, telecommunications, and natural gas
infrastructure will be inventoried and assessed for their capacity to support future development.
The scope of analysis extends to parks, open spaces, floodplain management, and the existing
educational landscape.
This analysis also includes reassessing the feasibility of previous development and access
improvement assumptions in light of the anticipated replacement of the Tryon Creek Wastewater
Treatment Plant (TCWTP), evaluating how this significant change impacts site circulation,
redevelopment potential, and access to adjacent natural areas. This report will also examine
how nearby redevelopment projects, such as North Anchor and Windward, have influenced local
investment trends and community character.
Land use conditions were documented and analyzed, highlighting redevelopment potential and
compatibility with future mixed-use patterns. Finally, these findings are synthesized into an
Opportunities and Constraints Summary and Map, providing a clear, strategic basis for subsequent
planning phases.
The 2012 Foothills Framework Plan established robust, site-specific data on soils, groundwater,
floodplain, utilities, transportation, and land use. Most conditions identified then remain relevant
and form the foundation for the 2025 Inventory & Analysis. The current focus is on:
• Updating assumptions and data to reflect new developments (North Anchor, Windward, TCWTP
replacement).
• Re-verifying infrastructure capacities and floodplain limits.
• Integrating updated policy frameworks (Parks Plan 2040, Transportation System Plan (TSP)
2022, Metro 2040 updates).
6 ATTACHMENT 8/PAGE 6 OF 124
Tryon Creek
Wastewater
Treatment Plant
Oswego Pointe
Apartments
Oswego
Village
Center
St
a
t
e
S
t
B Ave
A Ave
Wil
l
a
m
e
t
t
e
R
i
v
e
r
Lakewood Bay
Tr
y
o
n
C
r
e
e
k
Lake Oswego
Library
Lake Oswego
Main Fire Station
Lake Oswego
City Hall
Tryon Cove Natural Area
Tryon Cove
Park
Roehr
Park
Charlie S.
Brown Water
Sports Center
Oswego Pointe
Condominiums
Oswego Pointe
Offices
Foothills
Park
Fig. 1: Project Area
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 7ATTACHMENT 8/PAGE 7 OF 124
Existing Land Uses
Planned Land Uses
Vacant & Developed Land Inventory
Redevelopment Potential
Commercial
Residential - Single Family
Residential - Mobile/Manufactured Homes
Residential - 2-4 units
Residential - Multi-family
Civic - Government facilities, schools, medical
Civic - Infrastructure, utilities
Civic - Parks and natural open space
Church/Gathering
Industrial
Vacant, Agricultural, Open Space1ATTACHMENT 8/PAGE 8 OF 124
Existing Land Uses
Planned Land Uses
Vacant & Developed Land Inventory
Redevelopment Potential
Commercial
Residential - Single Family
Residential - Mobile/Manufactured Homes
Residential - 2-4 units
Residential - Multi-family
Civic - Government facilities, schools, medical
Civic - Infrastructure, utilities
Civic - Parks and natural open space
Church/Gathering
Industrial
Vacant, Agricultural, Open Space
DISTRICT HISTORY & BASE MAPPING1 1.1 District History
1.2 Base Mapping
ATTACHMENT 8/PAGE 9 OF 124
1.1 DISTRICT HISTORY
Shaped by Water and Time
More than 12,000 years ago, the Missoula Floods—
among the most powerful known on Earth—shaped the
geology of the Pacific Northwest and influenced the
Portland Metro region, including the Foothills area and
Oswego Lake.
By at least 6,100 years ago, prehistoric peoples
inhabited present-day Lake Oswego. Obsidian projectile
points and other artifacts reflect the long presence of
Chinookan and Kalapuyan communities, including the
Clowewalla, Clackamas, and Tualatin peoples, along
the Willamette River. Chinook-speaking Clowewalla
and Kalapuyan-speaking Tualatin territories were most
closely linked to Oswego’s geographic location.
Kalapuya oral histories recall the floods forcing people
to higher ground on Mary’s Peak and the Red Hills.
Even after removal to the Grand Ronde Reservation
in 1856, tribal members returned to fish, gather, and
maintain ties to their ancestral lands. The valleys were
linguistically and culturally rich, home to Chinookan,
Kalapuyan, Molallan, Athabaskan, and Siuslawan
peoples connected through trade, kinship, and
ceremony.
Industry and the Making of Oswego
In 1850, Congress passed the Donation Land Act,
granting thousands of U.S. citizens access to property
ownership in Oregon Territory. Single men could claim
320 acres, and married couples 640 acres, if they
traveled west and developed their land. An 1862 map
of Donation Land Claims shows most of Foothills within
the Albert Durham claim, with a smaller portion in the
Josiah Franklin claim. Township 2 South, Range 1 East,
Section 11—within today’s Lake Oswego—was surveyed
through this process. Albert Alonzo Durham, originally
from New York, owned a sawmill interest south of
Oregon City and later returned from the California
Gold Rush to establish his own mill. His claim included
today’s downtown and Sucker Creek (now Oswego
Creek), ideal for a dam. He named the settlement
“Oswego,” though his plat was never filed.
To establish the Oswego Milling Company, John
Trullinger bought the mill from Durham in 1865, and
soon thereafter modernized the mill and replatted
Oswego, including the area that we now refer to as
Fig. 2: Missoula Floods
Fig. 3: Oregon Portland Cement Company Fig. 4: Oswego Point/Roehr Park - Oregon Iron & Steel Co. in 1880s10ATTACHMENT 8/PAGE 10 OF 124
1.1 DISTRICT HISTORY
Old Town directly adjacent to the southern portion of
Foothills.
The region’s next chapter was iron. In 1867, the Oregon
Iron Company fired up the first blast furnace west
of the Rockies. The original furnace is still standing
today in George Rogers Park. Ore came from nearby
hills, limestone traveled by steamboat, and timber was
burned to make charcoal—much of the labor carried out
by Chinese workers, whose contributions remain an
under-recognized part of Oregon’s industrial history.
A rebirth of Oswego’s iron industry seemed poised to
emerge In the early 1880s when two new investors
- Henry Villard and Simeon Reed (founder of Reed
College) arrived, bought the ironworks, and renamed
the business the Oregon Iron and Steel Company.
Because the original smelter site was out of date
and required replacement, Villard and Reed decided
to build a new modern furnace on a site one half
mile north along the River – in the Foothills District,
close to the current office complex near Roehr Park. At
the same time, a new cast iron pipe foundry was built
about a quarter mile north on the site of the current
waste water treatment plant and brick charcoal kilns
were built in the middle of what is now the Oswego
Pointe Apartments.
During the iron industry’s expansion, narrow gauge
rail service arrived in Oswego. Many iron trade
businessmen helped form the Portland and Willamette
Valley Railroad in 1885, eventually linking Oswego
to Portland by rail. The depot stood on the west edge
of today’s Foothills Neighborhood near the terminus
of the Lake Oswego–Willamette Trolley Line. The rail
connection was considered a major asset, and land
near the line and depot was highly valued.
Despite optimism, the iron industry was volatile. After
its peak, the company faced high charcoal costs, low-
grade ore, limited limestone, and expensive shipping.
The Panic of 1893 forced the furnace to close in 1894.
The foundry ran 34 more years, and the industry ended
in 1928. Oregon Iron & Steel later shifted into property
development.
Before iron fully ended, the Oregon Portland Cement
Plant launched a new era. Planned in 1909 by the
Oregon Portland Cement Company, the plant was built
on land now occupied by Oswego Pointe Apartments.
Key investors included Denver banker Charles
Boettcher and Canadian magnate R.P. Butchart. By
1916, production was underway. The plant operated
until the mid-1980s, then was demolished for the
Oswego Pointe development.
From Industry to Identity
Around the same time that the cement plant started
operating, the Southern Pacific rail service between
Portland and Oswego was electrified. The “Red Electric”
(technically, the Portland, Eugene and Eastern) ran
between Portland and Oswego about ten times a day,
providing quick and convenient access between the
two cities. The Ladd Estate Company acquired much of
the former industrial property n the early 1900s, and
promoted it as a lakeside retreat. Fig. 5: Lake Oswego Country Club District Promotion
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 11ATTACHMENT 8/PAGE 11 OF 124
that experienced severe damage included Oregon City
and Tillamook, which were submerged for several
days.
The 1996 flooding in the Foothills District of Lake
Oswego, Oregon, inundated 26 acres of already
developed land and reached an inundation level of 36.2
feet, which was 2.3 feet above the 100-year floodplain
elevation.
Extent of the Flooding
• Area Affected: Of the 107 acres comprising the
Foothills District Plan Area, 27.6 acres were in the
FEMA mapped 100-year floodplain, and 26 of those
acres, which contained a combination of parks, a
wastewater treatment plant, and industrial uses,
were flooded.
• Water Levels: The flood’s inundation level in the
District was 36.2 feet. In comparison, the Willamette
River, which flows nearby, crested in downtown
Portland at 28.6 feet, more than 10 feet above flood
stage.
With the arrival of the Red Electric Railway, Lake
Oswego became a resort community marketed
under the slogan “Live Where You Play.” Platted
by the Ladd Estate Company, Oswego Lake
was planned as a suburban resort community.
Developer Paul C. Murphy purchased 3,000 acres
in 1912 and emphasized curving park-like streets,
recreation amenities, and City Beautiful principles
that shaped later development. Carefully planned
subdivisions such as Lake View Villas and Lakewood
Bay introduced architectural controls—and racial
restrictions—that shaped the city’s exclusive identity.
Through the mid-century, the Foothills remained a
mix of light industry, warehouses, and infrastructure,
physically separated from downtown and the
Willamette River by rail lines and steep slopes. While
the lakefront flourished as the city’s image of leisure
and affluence, the Foothills persisted as a utilitarian
district—its industrial past largely forgotten.
Over the last 50 years, much of what we see today
in the area has been built out. The iron pipe foundry
has been replaced by the Tryon Creek Waste Water
Treatment Plant, and Foothills Park occupies the
former site of a paper pulp wood chip storage facility
that served the Crown Zellerbach paper mill in
Oregon City. Oswego Village Center was constructed
in the late 1950s with a major remodel in the late
1980s. The existing Oswego Pointe Development was
built in the late 1980s on the site of the cement plant.
The remainder of the area was built up with small
industrial and manufacturing buildings, including a
small ready mix concrete plant.
The Big Flood
The 1996 Willamette River flood, a major disaster
in the region, heavily impacted areas like Lake
Oswego’s Foothills district, with waters pouring
down through developments and flooding streets.
This was caused by a powerful “Pineapple Express”
atmospheric river that brought record rain on top of
a massive snowpack, melting the snow and causing
the Willamette River and its tributaries to overflow.
This event caused hundreds of millions of dollars in
damage and eight deaths across Oregon. Other areas
1.1 DISTRICT HISTORY, CONT.
Fig. 6: Willamette River Flood-1996
12 ATTACHMENT 8/PAGE 12 OF 124
1.1 DISTRICT HISTORY, CONT.
• Specific Impacts: In the greater Portland area, Lake
Oswego experienced water flow over its walls into
the downtown area, reaching a depth of at least
knee-deep in a two-block area.
Framework and Futures
In the early 2000’s, attention turned to the Foothills
district between downtown Lake Oswego and the
Willamette River. The 2012 Foothills Framework Plan
proposed transforming the historically industrial
corridor into a vibrant, mixed-use riverfront district.
It emphasized sustainability, walkability, public river
access, and ecological restoration, guided by objectives
to:
• Redevelop underutilized industrial lands for housing,
parks, and commercial spaces
• Improve public access to the riverfront, long
constrained by rail and industrial sites
• Restore Tryon Creek and other natural systems
through infrastructure improvements
• Strengthen connections among Millennium Park,
downtown, and future transit
The plan generated excitement, but implementation
faced hurdles. The proposed Portland-to–Lake Oswego
Streetcar, central to connectivity, was shelved.
Environmental constraints, high redevelopment
costs, and infrastructure coordination with private
investment slowed progress. The URA—the main
funding mechanism for the 2012 Framework Plan—
was repealed just months after adoption, further
stalling redevelopment. Still, projects like the Tryon
Creek culvert replacement reflect ongoing ecological
stewardship.
Recent History and the 2025 Planning
Cycle
Over time, the district’s evolving needs prompted
new goals. The existing wastewater treatment plant
was identified as requiring replacement, and the city
recognized the need to address housing affordability,
protect natural resources, and improve park and river
access.
In 2025, the City Council restarted planning for the
Foothills District, acknowledging both challenges and
opportunities. The new planning cycle focuses on:
• Replacing the wastewater treatment plant
• Increasing housing affordability and diversity
• Protecting and enhancing natural resources
• Expanding public access to parks and the riverfront
• Creating an Urban Renewal Plan to fund necessary
infrastructure improvements
Through millennia of geological change, centuries of
Native stewardship, waves of industrial development,
and modern planning efforts, the Foothills District
remains a landscape of layered histories—one that
continues to evolve while retaining its deep connection
to land, water, and community.Fig. 7: Foothills District Framework-Master Plan (2012)
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 13ATTACHMENT 8/PAGE 13 OF 124
1.2 BASE MAPPING
The Foothills District is a private and publicly owned
mixed-use community in Lake Oswego, Clackamas
County, Oregon. The Foothills District contains several
entities that serve the City of Lake Oswego (City),
which include sanitary services with the Tryon Creek
Wastewater Treatment Plant, multi-family housing,
commercial businesses, a shopping center, recreational
park facilities, and freight railroads. The Foothills
District has opportunities to provide enhancements and
expansion to the existing public and private services
in the city. The site is composed of three distinct
subdistricts, which include the North District to the
north, the Upper Shelf District to the southwest, and the
Garden District to the southeast.
The Foothills District study area consists of an area
totaling roughly 107 acres and is generally bordered
by the Willamette River to the east, N State Street to
the west, Tryon Creek to the north, and Leonard Street
to the south. At 43 acres, the North District equates
to most of the planning area, while the Upper Shelf
District and Garden District have a total area of 13.2
acres and 28.4 acres, respectively. The 8-acre Oswego
Pointe Condominiums site in the center of the Foothills
District is not included in the near-term planning area.
A. Project Area and Sub-Districts
14 ATTACHMENT 8/PAGE 14 OF 124
0 200’400’NORTH
1.2 BASE MAPPING
Fig. 8: Foothills District- Sub-Areas
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 15ATTACHMENT 8/PAGE 15 OF 124
1.2 BASE MAPPING, CONT.
B. Property Ownership
A variety of public and private
properties exist within the Foothills
District. The City of Lake Oswego is
the predominant public entity, with
significant land holdings, including
contiguous riverfront properties
along the Willamette River and
ongoing acquisitions to support
replacement of the Wastewater
Treatment Plant (TCWTP).
Public Properties:
1 City of Lake Oswego
2 Metro
Private Properties:
8 Public Storage Inst. Fund II
9 L&S Investments
10 120 Foothills Road LLC
11 220 Foothills LLC
12 221 Foothills Road LLC
13 Taylor Neliemae Trustee
14 Oswego Pointe Group LLC
15 Laufer, Vivian E Trustee
16 Foundry Building, LLC
17 Rocketship LLC
18 Prime Foothills LLC
20 Asana PartnersLP
0 200’400’NORTH
Fig. 9: Foothills District Ownerships
16 ATTACHMENT 8/PAGE 16 OF 124
1.2 BASE MAPPING, CONT.
0 200’400’
C. Existing Uses
Existing business types and land
uses within the Foothills District
includes a mix of light-industrial
uses, public infrastructure,
residential development, office/
event space, and public parks.
1. Light-Industrial and Service
Businesses
Light industrial and service-
oriented uses, such as auto-repair
shops, contractor operations, and
storage facilities.
2. Utility and Public-Infrastructure
Uses
A substantial portion of the
area is occupied by municipal
infrastructure, including the
wastewater treatment facility and
related utility functions.
3. Residential Development
Multi-family housing is present at
the Oswego Pointe Condominiums
and Oswego Pointe Apartments.
4. Office and Event Space
The Foundry provides office space
and an event venue.
5. Public Parks and Open Space
Foothills Park and Roehr Park
offer waterfront open space and
recreation amenities.
6. Limited Commercial Activity
Minimal retail or customer-oriented
commercial activity.
7. Areas in Transition
Some properties remain
underutilized or are expected to
redevelop as the district transitions
into the future.
Areas in Transition
NORTH
Fig. 10: Foothills District Existing Uses
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1.2 BASE MAPPING, CONT.
including dredging and Section 404 authorizations.
Along the shoreline, the City of Lake Oswego
(within city limits) and Clackamas County (in
unincorporated areas) regulate land use, floodplain
management, and shoreline development consistent
with state and regional environmental standards.
5. Oregon Parks and Recreation Department (OPRD)
OPRD manages Tryon Creek State Natural Area,
located adjacent to the Foothills District. The
agency oversees ecological protection, recreational
amenities, trail networks, and watershed health,
contributing to environmental considerations for
district planning.
6. Oregon Department of Transportation (ODOT)
ODOT manages Highway 43 (State Street), the
primary regional roadway serving the Foothills
District. The agency oversees corridor operations,
access management, traffic safety, and permitting
for construction or improvements affecting the
state highway.
7. ODOT Rail and Public Transit Division
ODOT Rail regulates rail safety and operations and
oversees compliance for the Willamette Shore
Line corridor. The division reviews any project that
affects rail crossings, right-of-way, or the condition
and operation of existing rail facilities.
8. Willamette Shore Line / Willamette Shore
Trolley Consortium
The Willamette Shore Line is a publicly owned rail
corridor extending from Lake Oswego to Portland
and managed by a multiagency consortium. It
currently supports seasonal trolley service and is
preserved for potential future transit. The corridor
influences access, safety, and long-range mobility
planning in the Foothills District.
D. Jurisdictions and Agencies
The following is a summary of the key jurisdictions
and agencies with authority in and around the Lake
Oswego Foothills District,
1. City of Lake Oswego
The City of Lake Oswego serves as the primary
land use, zoning, and infrastructure authority
within the Foothills District. The City is responsible
for development review, local transportation
systems, utilities, parks, and public safety services,
and participates in regional initiatives including
wastewater management and the Willamette Shore
Line consortium.
2. Clackamas County
Provides regional coordination on transportation,
natural resources, emergency management, and
infrastructure systems within the county. The County
also participates in ownership and oversight of
the Willamette Shore Line corridor and manages
shoreline and resource regulations in unincorporated
areas near the Foothills District.
3. Portland Bureau of Environmental Services (BES)
BES co-owns and operates the Foothills Wastewater
Treatment Facility with the City of Lake Oswego.
The agency is responsible for wastewater treatment
capacity, regulatory compliance, system upgrades,
and discharge to the Willamette River. Facility
operations directly influence future redevelopment
opportunities in the district. BES and Metro both own
parts of the Tryon Cove Natural Area properties
4. State of Oregon
Jurisdiction over the Willamette River is shared
across multiple entities. The Oregon Department of
State Lands (DSL) manages the riverbed and issues
removal–fill and in-water work permits. The Oregon
State Marine Board manages regulation and safety
of in-water recreation The Oregon Department of
Environmental Quality (DEQ) regulates water quality
and discharge compliance. The U.S. Army Corps of
Engineers oversees navigable waterway permitting,
18 ATTACHMENT 8/PAGE 18 OF 124
1.2 BASE MAPPING, CONT.
9. Portland & Western Railroad
(PNWR)
Portland & Western Railroad
operates regional freight lines and
coordinates with other carriers
across the metro area. Although
not the primary operator on the
Willamette Shore Line, PNWR’s
regional freight connections
inform broader rail planning
considerations relevant to the
district.
10. Union Pacific Railroad (UPRR)
Union Pacific is the region’s major
freight rail carrier, operating
extensive north–south and
east–west routes that connect to
the broader rail network. While
UPRR lines do not run through
the Foothills District, the railroad
plays a key role in regional
freight planning and federal rail
coordination.
Fig. 11: Foothills District Juriducations and Agencies
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 19ATTACHMENT 8/PAGE 19 OF 124
E. Plan Update Focus Areas
The following Focus Areas indicate where the
current Plan Update will pursue concepts for future
redevelopment and access, given that the Tryon
Creek Wastewater Treatment Plant (TCWTP) is to be
relocated. This replacement frees the former TCWTP
site as a future redevelopment opportunity.
The Revised Concept Plan (Figure 12) for the adopted
Foothills District Framework Plan (2012) assumed
that significant redevelopment would occur primarily
in two areas: (1) the North District, including the
industrial area and the TCWTP, and (2) the Upper
Shelf, located at the State Street level south of the
Oswego Pointe condominiums. A third area—south
of the Oswego Pointe condominiums and largely
encompassing the Oswego Pointe Apartments and
Oswego Village Center (the “Garden District”)—
was not expected to redevelop within the 2012
Framework Plan timeframe.
The 2012 plan also identified a potential new
northern vehicular and pedestrian/bicycle portal
at State Street between D and E Avenues, using the
existing at-grade Union Pacific Railroad crossing to
create an additional access point into and out of the
District.
The replacement of the TCWTP to the west (See Fig.
13), within the hatched parcels shown in Focus Area
A (North District), changes these assumptions. The
previously envisioned northern portal alignment
conflicts with the new Wastewater Treatment Facility
(WWTF) location and will require realignment and
a revised connection to Foothills Road. At the same
time, the former TCWTP site becomes available for
redevelopment, creating a significant opportunity
that was not anticipated in the 2012 plan.
Figure 13 illustrates the focus areas for the current
Plan Update and highlights revised infrastructure,
access, and redevelopment considerations. Portions
of Area A, and Area E are now the primary future
redevelopment areas. Areas B and C focus on access,
with potential connections being considered from
the north at State Street between D and E Avenues
and from the Highway 43/Terwilliger Boulevard
intersection.
Fig. 12: Revised Concept Plan (2012)
1.2 BASE MAPPING, CONT.
20 ATTACHMENT 8/PAGE 20 OF 124
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Legend
A- City of Lake Oswego- Potential Infrastructure
and Redevelopment Area
B- Private Parcel- Potential Future Access
Consideration
C- Private Parcel(s), City, ODOT, & Rail- Potential
Future Access Considerations
D- Private Parcel- Potential Redevelopment Area
E- Private Parcel- Potential Redevelopment Area
Fig. 13: Foothills District Plan Update-Focus Areas
1.2 BASE MAPPING, CONT.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 21ATTACHMENT 8/PAGE 21 OF 124
2ATTACHMENT 8/PAGE 22 OF 124
2SITE CONDITIONS
2.1 Geotechnical
Appendix A: Inventory and Analysis; Attachment A: Geotechnical Engineering Feasibility Analysis
2.2 Environmental Hazardous Materials Corridor Study
Appendix A: Inventory and Analysis; Attachment B: Environmental Hazardous Materials Corridor Study
2.3 Natural Systems
Appendix A: Inventory and Analysis; Attachment C: Natural Resource Assessment
2.4 FEMA Floodplain
Appendix A: Foothills District Plan Update-Inventory and Analysis- FEMA Floodplain
ATTACHMENT 8/PAGE 23 OF 124
Fig. 14: Foothills District Geologic Map
SITE CONDITIONS
2.1 GEOTECHNICAL
Overview
A review of past geotechnical
evaluations for the Foothills
District—including GeoDesign’s
2012 summary and the 2025
Apex Geotechnical Engineering
Feasibility Study—indicates that
the area is geotechnically suitable
for redevelopment, with known
subsurface variability and seismic/
flood hazards that can be managed
through standard engineering
measures.
Future site-specific explorations
will be needed to support detailed
design. The full detailed APEX 2025
report, maps, and figures are included
in Appendix A: Inventory and Analysis; Attachment A-
Geotechnical Engineering Feasibility Study.
A. Subsurface Conditions
The Foothills District lies within the Portland Basin
and is underlain by:
• Artificial fill placed during historic site development.
• Missoula Flood deposits (interbedded clay, silt,
sand, and gravel), including both coarse and fine
flood facies.
• Alluvial deposits near Tryon Creek and the
Willamette River.
• Columbia River Basalt bedrock, typically 2–25
feet below grade, with variable thicknesses of
weathered basalt overlying massive, strong
bedrock.
1. Fill Materials
Fill is present across much of the site, typically
0–10 feet thick, and may contain construction debris
(concrete, asphalt, wood, brick, rebar).
Such variable fill conditions create uncertainty—
especially in the southern portion of the district—
where deeper, undocumented fill may necessitate
removal/replacement or deep foundations.
2. Groundwater
Groundwater is generally shallow, ranging from 3 to
23 feet below ground surface, and varies seasonally.
24 ATTACHMENT 8/PAGE 24 OF 124
B. Geologic and Seismic
Hazards
1. Landslides & Slope Stability
• No mapped landslides within the
project area.
• Localized steeper slopes along the
Willamette River edge, Tryon Creek,
and a central-south slope break
have moderate to high landslide
susceptibility.
• Earthquake-induced landslides are
possible along these slope breaks.
The majority of the developed portions
of the site exhibit low–moderate
susceptibility.
2. Seismicity
The district is subject to multiple
seismic sources, including:
• Cascadia Subduction Zone
megathrust earthquakes (M9)
• Local crustal faults, including the
Oatfield Fault (~1 mile away)
• Intraslab earthquakes
Both GeoDesign and Apex confirm that
no active fault crosses the site, and no
seismic hazards have been identified
that would preclude redevelopment.
Fig. 15: Foothills District Slope Map
Fig. 16: Foothills District Historical Seismicity
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 25ATTACHMENT 8/PAGE 25 OF 124
Fig. 17: Foothills District Liquifaction Hazard Map
Fig. 18: Foothills District Flood Map
3. Liquefaction & Lateral Spreading
• Liquefaction potential ranges
from low to moderate across
most of the district.
• Very high liquefaction
susceptibility is mapped along
the Willamette River and Tryon
Creek, raising the potential
for lateral spreading, with
displacements of several feet
possible during major seismic
events.
4. Flooding
Significant portions of the central
and eastern site fall within the
100-year and 500-year floodplains—an
important constraint for utilities,
subgrade spaces, and emergency
planning.
26 ATTACHMENT 8/PAGE 26 OF 124
C. Foundation and Structural
Considerations
1. Shallow Foundations
Both GeoDesign and Apex indicate that low- to mid-
rise structures can often be supported on shallow
spread footings, bearing on:
• Medium-stiff to dense native flood deposits
• Structural fill placed on competent subgrade
Apex provides preliminary allowable bearing
pressures of 1,500–3,000 psf, depending on conditions.
2. Deep Foundations
Deep foundations (likely piles or drilled shafts) may be
required where:
• Liquefiable soils are present
• Larger structures demand improved seismic
performance
• Thick, loose or debris-laden fill is present
(especially southern areas)
• Bedrock is shallow enough to be used as bearing
3. High-Rise Structures
GeoDesign notes that structures with occupied floors
75 ft or more above grade will likely require:
• Site-specific seismic hazard analyses, and
• Potential reliance on deep foundations.
Apex anticipates seismic design will follow ASCE 7-22
(new structures) and ASCE 41-23 (retrofits), with the
site likely falling within Site Class C or D pending
confirmatory testing.
D. Construction Considerations
• Excavation: Soil excavation expected to be
straightforward; basalt excavation may require
ripping or blasting in localized areas.
• Wet-season construction: Near-surface soils become
unstable when wet; careful subgrade protection (e.g.,
geotextiles, haul roads) will be necessary.
• Demolition: Removal of existing pavements, utilities,
undocumented fill, and buried debris required.
• Reuse of on-site soils: Likely feasible for structural
fill during dry conditions, though subject to testing.
Foothills Update Considerations:
1. The Foothills District is geotechnically feasible for
redevelopment, including residential, commercial,
and public infrastructure uses.
2. Liquefaction and lateral spreading represent the
most significant geotechnical hazards along the
waterfront and creek edges.
3. Foundation strategies will vary across the site,
with some areas suitable for shallow foundations
and others likely requiring piles or removal/
replacement of fill.
4. Floodplain constraints and shallow groundwater
will shape below-grade design, utility routing, and
stormwater strategies.
5. Slope stability should be carefully reviewed in areas
adjacent to the Willamette River and Tryon Creek.
6. Detailed geotechnical exploration is required during
the next phase to confirm subsurface conditions
and refine foundation, seismic, and earthwork
recommendations.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 27ATTACHMENT 8/PAGE 27 OF 124
2.2 ENVIRONMENTAL HAZARDOUS MATERIALS
CORRIDOR STUDY
Overview
The corridor includes numerous current and
historical land uses with potential hazardous-
substance concerns—such as former industrial
operations, dry cleaners, auto repair, rail corridors,
and solid waste handling sites. The review
incorporated DEQ Environmental Cleanup Site
Information (ECSI) files, leaking underground
storage tank (LUST) records, RCRA generator data,
hazardous substance incident reports, and other
environmental databases.
Apex Companies conducted a comprehensive review
of historic uses, environmental records, and known
hazardous-materials sites within the Foothills
Neighborhood along North State Street in Lake
Oswego. The full detailed APEX 2025 report, maps,
and figures are included in Appendix A: Inventory
and Analysis; Attachment B- Hazardous Materials
Corridor Study.
A. Key Environmental
Considerations
Multiple ECSI-listed properties lie within or adjacent
to the corridor. Fourteen ECSI sites were identified
within 1 mile of the target area.
• Five RCRA Very Small Quantity Generators
(VSQGs) are located within 0.25 miles of the
corridor, including dry cleaners, paint suppliers,
and automotive service uses.
• Historic groundwater contamination was
documented at the former city wells at 101
Foothills Road, including VOCs such as PCE, TCE,
and cis-1,2-DCE exceeding MCLs in past sampling
events.
• Foothills Park (former chip facility) underwent
remedial actions in the early 2000s; residual
low-level petroleum contamination remains but is
below applicable cleanup criteria.
• 341 Foothills Drive (ECSI 6298) appears to have
completed remedial excavation, with subsequent
soil samples showing no detectable TPH; regulatory
closure could be pursued .
B. Area-Specific Findings
The study divides the corridor into Areas A–E (Fig.
19). Key concerns identified in the study include:
• Area A
»Contains a historic rail line corridor, which may
include petroleum hydrocarbons, pesticides,
and herbicides used for rail operations and
maintenance .
»Limited subsurface data exist for these locations;
contaminants could be encountered during
excavation or grading.
• Area B
»Includes several hazardous-materials listings
associated with commercial and automotive uses.
»The study notes elevated potential for localized
contamination related to small-scale hazardous
waste generators (e.g., auto body shops,
cleaners).
• Area C
»Contains or is proximate to former industrial and
utility lands.
»Some properties have DEQ listings where
cleanup activities have been completed; however,
isolated contamination may remain.
• Area D
»Contains sites with documented hazardous waste
generation history and one recycling facility with
prior regulatory activity.
»Multiple mapped RCRA-VSQG and ECSI sites
cluster here.
28 ATTACHMENT 8/PAGE 28 OF 124
• Area E
»Includes older commercial
structures with potential
for historical releases from
former tenants such as dry
cleaners.
»Several LUST sites within or
near the area have completed
cleanup but may warrant
consideration during deep
excavation.
• Other Areas / Adjacent
Properties
»Numerous surrounding
parcels are in DEQ’s ECSI
and LUST databases; while
many are closed, these sites
demonstrate a long history
of small-scale spills and
localized releases in the
broader area.
»West-adjacent properties
include several completed
LUST cleanups, indicating
historic petroleum releases in
the vicinity.
Foothills Plan Update
Considerations:
The study concludes that future
construction and infrastructure
improvements in the Foothills
District may encounter residual
contamination in several locations. Key implications
include:
1. Preconstruction due diligence (Phase I/II ESAs)
is recommended for any redevelopment within
Areas A–E.
2. Soil management plans may be necessary where
historical releases are documented or suspected.
Fig. 19: Foothills District Hazardous Materials Corridor Study Map
3. Groundwater contamination near Foothills Road,
including VOCs, may constrain deep excavation or
require dewatering management.
4. Coordination with DEQ is advisable where
regulatory files remain open or where closure is
recommended but not yet processed.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 29ATTACHMENT 8/PAGE 29 OF 124
2.3 NATURAL SYSTEMS
Overview
The Foothills District natural
systems are characterized by two
primary wetland and waterways
systems: Tryon Creek to the north
and the Willamette River to the
east. Topography generally slopes
steeply from the upland west toward
the river, with flatter benches of
developable industrial and filled land
nearer the riverfront.
Vegetation in the district includes
ornamental landscaping, maintained
turf, and native and non-native tree
cover, with higher-quality riparian
habitat found along the river
and Tryon Creek. Portions of the
shoreline exhibit bank erosion and
historic riprap armoring.
The climate is temperate with approximately 46 inches
of annual precipitation and prevailing winds that shift
seasonally. Slopes over 12–15% present development
challenges, and subsurface conditions include man-
made fill over alluvial deposits and deep basalt
bedrock.
A field reconnaissance was conducted by an Apex
Project Biologist in early November 2025. The areas
of expected change within the Foothills District were
inspected for wetlands, waters, and riparian habitat.
The full detailed report is included in the Appendix
A: Inventory and Analysis; Attachment C- Natural
Resource Assessment. A summary of the natural
systems are as follows.
A. Landscape Setting & Natural Context
The Foothills District is a 107-acre riverfront area
positioned between downtown Lake Oswego and the
Willamette River. The landscape is defined by:
1. Two primary waterway systems:
• Tryon Creek (north/northwest boundary) and the
Willamette River (east boundary).
• These corridors strongly influence development
potential because of their riparian habitat,
floodplains, regulatory overlays, and steep slopes.
Fig. 20: Foothills District Setting and Context
Willamette River
Tryo
n
C
r
e
e
k
30 ATTACHMENT 8/PAGE 30 OF 124
Fig. 21: Foothills District- Topography
2. Topography:
• Two flat benches separated
by steep, tree-covered slopes
descending toward the river.
Elevations fall from ~100–110 ft
toward the riverbank.
• Slopes >5% create accessibility
challenges; slopes >12–15%
significantly constrain street and
utility design.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 31ATTACHMENT 8/PAGE 31 OF 124
3. Soils & Geology:
• Urban fill overlying Missoula
Flood deposits (silts, sands,
gravels, cobbles, and basalt).
Basalt appears at shallow depth
near the river.
• Perched groundwater occurs
seasonally and generally flows
east to the Willamette River.
Fig. 22: Foothills District- Soil Stability
32 ATTACHMENT 8/PAGE 32 OF 124
Fig. 23: Foothills District- Climate
4. Climate:
• Temperate winters, mild
summers, ~46” annual
precipitation, and strong
seasonal rainfall variation.
• Solar access favors east–west
building orientation for energy
efficiency.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 33ATTACHMENT 8/PAGE 33 OF 124
Fig. 24: Foothills District- Tree Canopy
5. Tree Canopy
• Lake Oswego has a high level
of urban tree canopy—about
53% citywide, with most canopy
located on private property—
making tree preservation an
important consideration in
redevelopment.
• The City is updating its tree
regulations to create clearer
standards, improve hazard-
tree removal processes, and
offer incentives for preserving
mature and native trees. These
evolving regulations mean the
Foothills District Plan should
integrate existing significant
trees into site and street designs,
support long-term canopy
health, and anticipate mitigation
requirements as redevelopment
occurs.
34 ATTACHMENT 8/PAGE 34 OF 124
Fig. 25: Foothills District-Wetlands & Waterways Map
B. Wetlands, Waters, and
Riparian Resources
1. Key Water Resources
• Tryon Creek
»Class II stream (City of
Lake Oswego) and Essential
Salmonid Habitat (DSL).
»Flows southeast to its
confluence with the Willamette.
»Riparian corridor includes
black cottonwood, Oregon ash,
willow, red osier dogwood,
red alder, maple, Douglas fir,
Oregon grape, oceanspray,
snowberry, blackberry, and
reed canarygrass.
• Willamette River
»Forms the eastern edge of the
district and is also designated
Essential Salmonid Habitat.
»Riverbank vegetation includes
cottonwood, ash, maple,
Douglas fir, Oregon grape,
invasive ivy, blackberry,
traveler’s joy, and reed
canarygrass.
»Both corridors support bank
stabilization, nesting/perching
habitat, and wildlife movement.
Riparian restoration is
important.
2. Wetlands
Across the three sources, wetlands fall into three
categories:
• Previously Delineated Wetlands (2017 DSL
submission)
»Two wetlands (A: detention pond; B: flat area)
identified but determined artificial and non-
jurisdictional.
»DSL concurrence has since expired; any
redevelopment will require a new delineation.
• Historic Foothills Park Wetland (0.41 acres; 2003
delineation)
»Forested wetland above the Willamette.
»Corps did not take jurisdiction; wetland remains
intact.
• 2010 VAI Preliminary Wetland Inventory
»One isolated open-water wetland determined to
be a stormwater facility, not a regulatory wetland.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 35ATTACHMENT 8/PAGE 35 OF 124
Fig. 26: Foothills District- Wetlands & Waterways Regulations Map
C. Regulatory Framework
1. Wetlands & Waters (State/
Federal)
• Tryon Creek and the Willamette
River are jurisdictional waters.
• A Joint Permit Application (JPA)
is required for any fill/removal
within them.
• DSL has a 50-CY threshold for
wetlands; no threshold for work
in Essential Salmonid Habitat.
• USACE has no quantity threshold
in jurisdictional waters.
Mitigation options include:
• Mitigation bank credits
(preferred; only one bank
currently covers the area, and it
provides stream credits only).
• Payment-in-lieu
• Permittee-responsible mitigation
(on- or off-site)
2. City of Lake Oswego Sensitive
Lands / Riparian Requirements
Tryon Creek is designated RP
(Resource Protection)
• RP buffer: 25–30 feet from
resource boundary, extended
outward on slopes >25%.
• 10-foot construction setback
applies outside the RP zone.
• Development activities in the RP
zone require minor development
review and often mitigation.
36 ATTACHMENT 8/PAGE 36 OF 124
3. Willamette River Greenway (WRG Overlay)
• 150-ft setback from Ordinary Low Water.
• Parks and recreational uses are permitted; other
development requires minor development review.
• Non-water-dependent structures must be located
west of and ≥25 ft from the 50-year floodplain
contour, depending on location along the river.
4. Floodplain Requirements
• Initial modeling shows redevelopment can likely
meet “no-rise” or minimal-rise standards for the
100-year floodplain.
• Balanced cut/fill, alternatives analysis, and CLOMR/
LOMR may be required depending on design.
D. Habitat & Species Considerations
1. Fish and Wildlife
• The Willamette River and Tryon Creek provide
Critical Habitat for ESA-listed salmonids, including
Coho, Chinook, and steelhead.
• Federal permitting may trigger Section 7
consultation and Biological Assessment
requirements.
• Essential Fish Habitat (EFH) considerations apply to
any project with a federal nexus.
2. Bald Eagles
• Documented foraging habitat along the river and
creek; perching trees present though nests are >1
mile away.
E. Surface Water, Groundwater &
Flooding
• Groundwater is perched and variable; typically flows
east to the river.
• Floodplain covers portions of the district;
redevelopment must address:
»No-rise or mitigated-rise conditions
»Stormwater quality and detention standards
»Riparian habitat protection
»FEMA NFIP Biological Opinion conditions (avoid
floodplain fill in riparian buffer or mitigate storage
loss)
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 37ATTACHMENT 8/PAGE 37 OF 124
Fig. 27: Parks, Open Space and Ecology Map
F. Parks, Open Space &
Ecological Connectivity
• Foothills Park, Tryon Cove
Natural Area (undeveloped),
Tryon Cove Park, Roehr Park,
and a segment of the regional
Willamette River Greenway Trail
create a significant open space
network linking to Tryon Creek
State Natural Area.
• Enhancements to Tryon Creek
(900 ft) have already improved
fish passage, riparian function,
and off-channel refuge habitat.
38 ATTACHMENT 8/PAGE 38 OF 124
Foothills Plan Update Considerations:
Across all sources, the natural systems of the
Foothills District are dominated by the interplay of
the Willamette River, Tryon Creek, steep riverward
slopes, floodplain dynamics, and a patchwork of
riparian vegetation and historic fill soils. These
systems form the primary environmental drivers for
future planning and regulatory compliance.
Redevelopment is feasible but must carefully
address:
1. Riparian buffers and greenway setbacks
2. Tree canopy management by integrating existing
trees into site and street designs, support long-
term canopy health, and anticipate mitigation
requirements as redevelopment occurs
3. Floodplain mitigation and hydraulic performance
4. Wetland and water permitting
5. Habitat protection for salmonids and eagles
6. Slope stability and geotechnical constraints
7. Solar access with optimal orientation for new
buildings to take advantage of daylighting and
other passive solar energy-saving opportunities,
oriented to an eastwest axis, with long southern
facades exposed to natural light and narrow
facades on the east and west ends of buildings
reducing the heat load from intense morning and
afternoon sunlight. This orientation can generally
range 15 degrees north and south of a true east-
west axis and still offer maximized solar access.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 39ATTACHMENT 8/PAGE 39 OF 124
2.4 FEMA FLOODPLAIN
Overview
The Foothills District lies along the east bank of
the Willamette River and includes portions of the
Tryon Creek confluence area. Its low-lying industrial
parcels sit within areas regulated as floodplain and
riparian habitat, resulting in multiple overlapping
layers of hydrologic, ecological, and regulatory
constraints. The following summarizes the best
available information from historic modeling, FEMA
data, and updated City requirements.
A. Floodplain Context and Regulatory
Framework
1. FEMA Floodplain & Historic Flooding
The District is partially located within FEMA-
designated Special Flood Hazard Areas (SFHAs)
along the Willamette River. Three key elevation
benchmarks govern regulatory compliance and
development feasibility:
• 100-year (1% annual chance) Base Flood Elevation
(BFE): Approx. 33.9 ft NGVD (City of Lake Oswego
datum).
• 1996 Flood Event Elevation: 36.2 ft NGVD,
exceeding the mapped FEMA BFE and serving as
the City’s benchmark for additional flood risk.
• Lake Oswego Design Flood Elevation (LODFE): One
foot above the higher of FEMA’s BFE or the 1996
elevation → LODFE = 37.2 ft NGVD, the minimum
allowable elevation for habitable structures.
Because the 1996 flood exceeded FEMA’s mapped
floodplain, the City defines a Flood Management Area
(FMA) that includes both FEMA SFHAs and the extent
of 1996 inundation.
2. Local Floodplain Requirements
Key requirements shaping development include:
• New habitable floors must be ≥ 37.2 ft NGVD (1 ft
above 1996 levels).
• New streets and infrastructure are recommended
to meet the same elevation for safe ingress/
egress.
• Balanced cut-and-fill is normally required within
the floodplain, though past studies indicate a “no-
rise” may support an exception.
• Riparian regulations apply along the Willamette
River and Tryon Creek, including:
»170-ft Riparian Buffer Zone (RBZ) from Ordinary
High Water,
»25-ft vegetated corridor + 10-ft construction
setback along Tryon Creek.
B. Hydraulic Modeling Findings
(Historic Studies)
Two major hydraulic studies were completed as part
of Foothills planning:
• Appendix D (2012, Vigil–Agrimis) – detailed HEC-
RAS modeling based on updated bathymetry.
• Appendix B-7 (2010 preliminary analysis) –
screening-level HEC-RAS modeling.
C. Hydraulic Modeling – Key Shared
Outcomes
1. Fill Requirements
Both studies conclude that raising the development
area above the floodplain would require substantial
fill placement:
• Approx. 75,000 cubic yards of fill needed to elevate
the site above the 100-year floodplain.
This excludes additional fill required to reach the
desired finished grade near LODFE.
2. Water Surface Elevation Response
Despite the fill quantity, both studies found minimal
to no measurable rise in BFE:
• Appendix D (2012) –Proposed fill produced no
detectable rise (“no-rise”) in local or upstream
water surface elevations during the 100-year flood.
40 ATTACHMENT 8/PAGE 40 OF 124
• Appendix B-7 (2010) – Found < 2 inches of rise,
within FEMA’s rounding tolerance of 0.1 ft,
effectively qualifying as no-rise for regulatory
purposes.
Both analyses note that the Willamette River’s large
cross-sectional area means that even substantial
fill results in <1% loss of floodplain conveyance,
insufficient to meaningfully affect upstream/
downstream elevations.
3. Limitations Noted
• Analyses did not evaluate:
»Flood events larger than the 100-year (e.g.,
1996 recurrence or 500-year events)
»Impacts from Tryon Creek flooding, stormwater
system backflow, or overtopping from Lakewood
Bay
»Updated bathymetry (2010 study used 1946 NOS
data)
»Future conditions, including the new TCWTP
advance design or Foothills Park expansion
These limitations underscore the need for new
hydraulic modeling once redevelopment concepts
and grading plans are further defined.
D. Updated APEX (2025) Floodplain
Assessment
APEX’s analysis confirms and updates floodplain
constraints for current planning:
1. Elevation Benchmarks & Development
Requirements
APEX reiterates:
• 100-year FEMA BFE = 33.9 ft NGVD
• 1996 Flood = 36.2 ft NGVD
• LODFE = 37.2 ft NGVD
All new habitable structures must meet or exceed
37.2 ft NGVD, typically requiring significant fill
consistent with prior studies.
2. Need for a New Hydraulic “No-Rise” Assessment
APEX recommends a new hydraulic study due to
anticipated changes in site conditions, including:
• TCWTP redevelopment
• Foothills Park expansion
• Potential fill/cut changes
• New FEMA biological requirements (see below)
Given prior results, APEX anticipates the new study
will likely again support a no-rise determination,
assuming similar net fill volumes.
3. New FEMA Biological Review (2025)
A major change since the Framework Plan studies:
• Oregon jurisdictions must demonstrate “no net
loss” of floodplain biological function within the
170-ft Riparian Buffer Zone (RBZ).
• The City selected a permit-by-permit approach,
requiring:
»Habitat assessments for each development
action
»Analysis that is separate and distinct from
hydraulic “no-rise” modeling
This adds a new layer of review for redevelopment
along the Willamette River and Tryon Creek.
E. Riparian & Natural Resource
Constraints
The Foothills District includes sensitive natural
resources:
• Willamette River riparian corridor within the 170-
ft RBZ
• Tryon Creek confluence requiring:
»30-ft buffered vegetated corridor, and
»additional 10-ft construction setback
These areas influence building placement, grading,
stormwater design, and opportunities for habitat
enhancement.
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 41ATTACHMENT 8/PAGE 41 OF 124
F. Summary of Floodplain Conditions
1. Flood Risk and Elevation
• Portions of the Foothills District are susceptible to
flooding from the Willamette River and, to a lesser
extent, Tryon Creek.
• Regulatory elevations are determined by both
FEMA Base Flood Elevations and local benchmarks
that incorporate the higher water levels observed
during the 1996 flood.
2. Hydraulic Feasibility for Redevelopment
• Prior hydraulic modeling indicates that raising
the site using fill is unlikely to cause measurable
increases in flood elevations.
• A new hydraulic analysis will be needed to account
for updated topography, current bathymetry,
TCWTP improvements, and refined redevelopment
concepts.
3. Regulatory Considerations
Redevelopment within the District must address
multiple overlapping floodplain and riparian
requirements, including:
• FEMA Special Flood Hazard Area (SFHA) standards
and “no-rise” criteria.
• City of Lake Oswego Flood Management Area
regulations.
• Metro Title 3 requirements for cut-and-fill balance.
• FEMA’s 2025 biological function rules requiring
“no net loss” within the 170-foot Riparian Buffer
Zone.
• Riparian and habitat protection standards along
the Willamette River and Tryon Creek.
G. Implications for Land Use and Site
Planning
• Significant areas of the District will require fill to
reach the City’s required design flood elevation for
new development.
• Riparian buffers and natural resource protections
will influence site layout and reduce developable
area.
• Project-level hydraulic and biological assessments
will be necessary early in the permitting process
to ensure regulatory compliance and support
design decisions.
Foothills Plan Update Considerations:
Future redevelopment in the Foothills District
will need to address several floodplain-related
constraints and requirements:
1. Portions of the District remain vulnerable to
flooding from the Willamette River and Tryon
Creek, with regulatory elevations based on both
FEMA BFEs and the higher 1996 flood event.
2. Historic hydraulic modeling indicates that raising
the site with fill is unlikely to cause measurable
increases in flood elevations, though updated
modeling will be required to reflect current
topography, bathymetry, and redevelopment
scenarios.
3. Development must comply with multiple
overlapping regulations, including FEMA “no-rise”
standards, City Flood Management Area rules,
Metro Title 3 cut-and-fill requirements, and new
FEMA biological function criteria requiring “no
net loss” within the 170-foot Riparian Buffer
Zone.
4. Riparian buffers along the Willamette River and
Tryon Creek will limit developable areas and
influence site configuration.
5. Early project-level hydraulic and biological
assessments will be necessary to confirm
regulatory compliance and support site planning
and design.
42 ATTACHMENT 8/PAGE 42 OF 124
Fig. 28: Floodplain Map
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 43ATTACHMENT 8/PAGE 43 OF 124
3ATTACHMENT 8/PAGE 44 OF 124
3TRANSPORTATION
3.1 Existing Transportation System
3.2 2025 Traffic Conditions
3.3 Future District Access Considerations
3.4 Planned & Potential Transportation Improvements
3.5 Parking
Appendix A: Inventory and Analysis;
Attachment D-Existing Conditions Traffic Analysis
ATTACHMENT 8/PAGE 45 OF 124
Overview:
The following documents the current state of the
transportation system serving the Foothills District
in Lake Oswego, Oregon. It provides the foundation
for the Traffic Impact Study (TIS) and subsequent
evaluation of future no-build and build conditions
in accordance with the Oregon Department of
Transportation (ODOT) Analysis Procedures Manual
(APM) and the City of Lake Oswego Transportation
Impact Study Guidelines.
The report consolidates baseline information from:
• The 2012 Foothills Framework Plan and DKS
Transportation Appendices
• Lake Oswego to Portland Transit Project (2012)
• Tryon Cove Creek Trail Master Plan (2018)
• Oak Grove–Lake Oswego Pedestrian/Bicycle
Bridge Feasibility Study (2020)
• The City’s 2014 Transportation System Plan (TSP)
• The 2025–2031 Capital Improvement Plan (CIP)
• Current ODOT and City standards
• 2024–2025 system data (2025 Traffic Conditions
Analysis-Appendix X)
Study Area Definition
The Foothills District is located east of Downtown
Lake Oswego, bounded by:
• West: State Street (OR 43)
• North: Terwilliger Boulevard and Tryon Creek
• East: Willamette River
• South: Wilbur Street / Durham Street area
Per ODOT and City requirements, the study area for
the TIS includes all collector and arterial facilities
within ½ mile, plus intersections along OR 43
extending ¼ mile north and south of primary access
points.
The study area includes key intersections:
• State St (OR 43) at A Ave
• State St (OR 43) at B Ave
• State St (OR 43) at Foothills Rd
• State St (OR 43) at Terwilliger Blvd
• Local intersections on A, B, C, and D Avenues
• Foothills Rd intersections within the district
Policy Framework
1. City of Lake Oswego Comprehensive Plan
Goal 12 establishes mobility standards and
transportation policies, including:
• Major collectors and arterials designed to operate
at LOS E during peak hours.
2. ODOT Highway Mobility Standards
On OR 43 (State Street), ODOT applies volume-
to-capacity (v/c) ratio thresholds consistent with
the Oregon Highway Plan and the Highway Design
Manual.
3. Lake Oswego Transportation System Plan (2014)
The TSP outlines system deficiencies and identifies
long-term projects relevant to the Foothills District,
particularly along:
• State Street (OR 43)
• Willamette River Greenway Trail corridor
• McVey–Stafford Corridor
• Downtown multimodal network
3. Capital Improvement Plan (2025–
2031)
While Foothills-specific capital projects remain
mostly unfunded, several regional and corridor
projects influence access and mobility.
3.1 EXISTING TRANSPORTATIONSYSTEM
A. Motor Vehicle System
TRANSPORTATION
46 ATTACHMENT 8/PAGE 46 OF 124
Fig. 29: Vehicular Access Map
1. Roadway Network
• State Street (OR 43) is a
regionally significant arterial
and the sole access point to the
Foothills District via Foothills
Road.
• Local streets within the district
provide limited internal
connectivity.
2. Traffic Operations
Past studies (2012) and TSP
findings indicate ongoing
congestion along OR 43:
• The A Ave/State St intersection
experiences the highest delay.
• AM/PM peak queues routinely
extend 500–675 feet northbound
and southbound.
• Growth in regional travel
suggests these conditions are
likely worse today.
A full set of 2024–2025 turning
movement counts, classification
counts, and speed surveys will be
collected as part of the updated
TIS.
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3. Access & Circulation
• The district has only one vehicular access
point, creating a significant constraint for
redevelopment.
• Previous studies recommended adding a north
access connection near D Ave or Terwilliger
4. Crash History
A three-year crash history will be compiled using
ODOT’s CRS and City records. Historical data shows:
• High crash rates at OR 43 intersections (A Ave, B
Ave
• Contributing factors include signal timing,
limited sight distance, high speeds, and turning
movements.
Crash analysis will follow Highway Safety Manual
(HSM) methodologies.
B. Freight and Rail
• OR 43 carries 1–3% heavy vehicles, with peaks
overlapping commuter hours.
• The Union Pacific rail line forms a significant east–
west barrier.
• At-grade crossings near A Avenue present
operational and safety challenges.
Freight and rail conditions have not materially
changed since 2012.
C. Transit System
1. Bus Service
The Foothills District is served by several TriMet bus
lines operating along State Street (OR 43) within a
quarter mile of the district boundary:
• Line 35 – Macadam/Greeley
»Days: Daily (Mon–Sun)
»Headways: 20–30 min peak; ~30 min midday;
30–60 min evenings
»Span: ~5:00 AM–12:00 AM
»Stops: State St & Foothills Rd; State St & A Ave;
State St & B Ave
• Line 36 – South Shore
»Days: Weekdays only
»Headways: ~30 min peak; ~60 min midday
»Span: ~6:00 AM–7:00 PM
»Stops: State St & North Shore Rd (0.25 mi),
Downtown stops
• Line 78 – Beaverton/Lake Oswego
»Days: Daily (Mon–Sun)
»Headways: ~20–30 min peak; ~30 min midday;
30–60 min weekends
»Span: ~5:00 AM–11:00 PM
»Stops: Lake Oswego Transit Center (~0.25 mi)
• Line 153 – Stafford/Salamo
»Days: Weekdays (Mon–Fri)
TriMet
»Headways: ~60 min (generally hourly service)
TriMet
»Span: ~7:05 AM–6:06 PM (from Lake Oswego
Transit Center; varies slightly by direction)
TriMet
»Stops: Lake Oswego Transit Center (~0.25 mi)
Foothills Plan Update Considerations:
1. Transit access remains concentrated along State
Street with no direct service into the Foothills
District, highlighting the need for improved
pedestrian connections to stops.
2. Redevelopment will increase transit demand;
coordination with TriMet for improved headways
and potential service extensions will be essential
3. The district has the potential to become a transit-
supportive environment, but only with enhanced
multimodal access and streetscape improvements.
48 ATTACHMENT 8/PAGE 48 OF 124
Fig. 30: Transit Map
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2012 DKS Pedestrian Count Findings
• Overall pedestrian volumes were low, with most
intersections recording fewer than 20 pedestrians
per peak hour.
• Highest activity was observed at A Ave and B Ave
due to proximity to Downtown.
• Very low pedestrian activity occurred along
Foothills Road and OR 43/Foothills Rd.
D. Pedestrian System
1. Sidewalk Inventory
Sidewalks are generally present, but key gaps
remain in Foothills:
• Foothills Road (multiple segments)
• South side of C Avenue
• North side of D Avenue
Foothills Plan Update Considerations:
1. Historic low volumes indicate latent demand
because the district lacked destinations in 2012;
redevelopment will dramatically shift pedestrian
patterns.
2. There is a critical need to implement ADA-
compliant, continuous pedestrian routes along
Foothills Road and connecting to State Street bus
stops.
3. Pedestrian connectivity to regional trails (Greenway
Trail, Tryon Cove connection) should be integrated
into street design.
4. Crossing improvements at OR 43 should be
explored, including enhanced signals, median
refuges, or grade-separated concepts.
50 ATTACHMENT 8/PAGE 50 OF 124
Fig. 31: Pedestrian Map
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 51ATTACHMENT 8/PAGE 51 OF 124
Fig. 32: Bicycle Map
E. Bicycle System
Existing Facilities
The district contains minimal
bicycle infrastructure, with the
only marked on-street facility
being the westbound B Avenue
bike lane.
1. Kincaid Curlicue Corridor
(Shared-Use Path)
• Location & Alignment:
»Connects Foothills Road
to Foothills Park via a
separated pathway.
• Purpose:
»Provides an off-street
walking/biking connection
within the district
2. Willamette River Greenway
Regional Trail (Existing
Segment)
• Location & Alignment:
»Runs along the Willamette
River between Foothills Park
and areas south of Roehr Park.
• Purpose:
»Supports regional walking/
biking access along the
riverfront corridor.
Planned Bike/Ped Connections
These planned projects would
expand the shared-use pathway
network and improve regional trail continuity:
1. Foothills Park–Tryon Cove Connection (Shared-Use
Path + Bridge)
• Location & Alignment:
»Extends north from Foothills Park along the
Willamette River.
» Crosses Tryon Creek via a new ped/bike bridge.
»Connects directly into Tryon Cove Park.
• Purpose:
»Establish a continuous off-street multimodal
corridor.
»Strengthen regional trail access.
• Lead Agencies:
»City of Lake Oswego (lead)
»Metro (regional coordination and funding)
»ODOT (coordination)
52 ATTACHMENT 8/PAGE 52 OF 124
Fig. 33: Trails Map
2. Willamette River Greenway Trail
(George Rogers to Roehr Park)
• Location & Alignment:
»Completes the missing
Greenway Trail segment
between George Rogers Park
and Roehr Park.
• Purpose:
»Closes a key gap to complete a
continuous 2.25-mile multi-use
riverfront pathway.
»Improves safe walking/biking
connections to Downtown
and neighborhoods south of
Oswego Creek.
• Status / Schedule:
»Land use approval received;
estimated completion/opening
Fall 2026.
• Lead Agency:
»City of Lake Oswego (lead)
3. Foothills Park–Tryon Cove
Connection
• Location & Alignment:
»Extends north from Foothills
Park along the Willamette
River.
»Crosses Tryon Creek via a new
pedestrian/bicycle bridge.
»Connects directly into Tryon
Cove Park.
• Purpose:
»Establish a continuous off-
street multimodal corridor.
»Strengthen regional trail
access.
• Lead Agencies:
»City of Lake Oswego (lead)
»Metro (regional coordination
and funding)
»ODOT (coordination along OR
43)
Foothills Plan Update Considerations:
1. Bicycle infrastructure is limited; redevelopment requires new bike
facilities.
2. The Tryon Cove connection is a priority multimodal catalyst.
3. A north–south spine is key to linking Downtown, the riverfront, and
trails.
4. Update analysis for protected lanes, shared-use paths, and safer
intersections.
5. Rail constraints and inter-jurisdictional coordination will shape
feasibility, approvals, and implementation.
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3.2 2025 TRAFFIC
CONDITIONS
Overview
N State Street (OR43) is a primary north-south
route and Oregon Department of Transportation
(ODOT) highway that connects Portland, Lake
Oswego, and West Linn along the west bank of
the Willamette River. In addition to N State Street
being classified as a State Highway, through the
downtown area of Lake Oswego the corridor has a
special classification within the Oregon Highway Plan
as a Special Transportation Area (STA), between
Terwilliger Boulevard and McVey Avenue. An STA
designation prioritizes local access and circulation
for businesses, residences, and community activities
while accommodating pedestrians, bicycles, and
transit.
A Avenue is a primary east-west route through
downtown Lake Oswego connecting N State Street
(OR43) to areas west of downtown, via Country Club
Road and Iron Mountain Boulevard. B Avenue is also
a primary connection to State Street (OR43) and to
the local street network within the downtown area.
Terwilliger Boulevard is a primary route between
State Street (OR43) and areas north and east of the
Tryon Creek Natural Area. All other study roadways
are local streets.
The signalized intersection at Foothills Road is
currently the only vehicular access connection from
the Foothills District to N State Street (OR43) and
the surrounding transportation network, including
downtown Lake Oswego. The traffic study focused on
key intersections around the Foothills District area,
primarily along N State Street, to help determine
existing conditions and provide a way to measure
potential impacts and mitigations with various
redevelopment strategies within the Foothills
District.
A 2025 traffic study was conducted by APEX (see full
report, Appendix X: Attachment D, Existing Conditions
Traffic Analysis Apex Project 25010940) on key
intersections around the District area, primarily along
N State Street, to help determine existing conditions
and potential impacts and mitigations with various
redevelopment strategies within the District. Figure 34
shows the selected study intersections for evaluation.
A. Peak Hour Operations (2025)
Turning movement counts collected in October 2025
show the following:
• Overall System Performance
»All intersections meet jurisdictional mobility
standards during AM and PM peak hours.
»Signalized intersections along OR43 operate
below v/c 0.90, indicating available capacity
»Stop-controlled intersections (Terwilliger, E Ave, D
Ave) experience:
°Long delays for side-street traffic
°LOS E–F conditions during certain movements
°Challenges for left turns onto OR43
• Typical Observations
»State & A Avenue and State & B Avenue show
moderate congestion but remain within ODOT
standards.
»Foothills Road/Oswego Pointe Drive (AWSC)
performs well with low delay.
B. Collision History (2020–2024)
The highest number of crashes occurred at:
• State Street / A Avenue
• A Avenue / 1st Street
Most common crash types:
• Rear-end
• Turning movements
Collision rates at all intersections are below 1.0
crashes per million entering vehicles, indicating no
abnormal safety patterns.
54 ATTACHMENT 8/PAGE 54 OF 124
Fig. 34: Traffic Study Intersections Map
Traffic Conditions Summary
• Traffic operations function
acceptably today, with
capacity available at key OR43
intersections
• Side-street movements
face heavy delays at stop-
controlled intersections.
• No major safety concerns
emerged from crash
history.
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3.3 FUTURE
DISTRICT ACCESS
CONSIDERATIONS
A review of the 2012 Foothills District Framework
Plan and subsequent transportation studies confirms
that the Union Pacific Railroad (UPRR) corridor and
State Street (OR 43) create significant constraints for
providing additional access into the Foothills District
from the north. At the same time, these studies
identify specific locations where a northern connection
is technically feasible and could help distribute
traffic, improve multimodal circulation, strengthen
emergency access, and reduce pressure on the
entrance at Foothills Road/State Street.
A. Constraints and Opportunities for
North Access
The 2012 Framework Plan identifies two locations
along State Street with rail-to-road grades to
accommodate an at-grade UPRR crossing:
• The Terwilliger Boulevard intersection; and
• The existing Public Storage access between D and
E Avenues.
These locations form the basis for subsequent
evaluation of feasible northern access points. Later
studies—including the Streetcar Refinement Report
(2012) and the OGLO Bridge Feasibility Study (2020)—
also examine concepts in the vicinity of Terwilliger
Boulevard, but for different purposes (streetcar
alignment, active transportation bridge), and with
different assumptions about the type of connection
provided.
Together, these documents establish baseline
transportation conditions and long-term
considerations for potential north access into the
Foothills District.
B. 2012 Foothills District Framework
Plan – Preferred North Access
1. Evaluation of Options
Within the constraints described, the Framework
Plan evaluated two feasible northern access concepts
capable of accommodating an at-grade UPRR
crossing:
• Terwilliger Boulevard intersection; and
• North Portal-Public Storage access at D/E
Avenues.
The Terwilliger Boulevard option was ultimately
rejected for the following reasons:
• High cost and complexity associated with
constructing a new bridge over Tryon Creek;
• Major geometric modifications required at the State
Street/Terwilliger intersection; and
• Reduced trip volumes under the revised
Framework Plan land use program, which did not
justify the scale of new bridge infrastructure at
Terwilliger.
2. Preferred North Portal – D/E Avenue Location
The Framework Plan identifies the D/E Avenue Public
Storage access as the preferred “North Portal” for
vehicular access to the District, with the following key
design parameters:
• New at-grade UPRR crossing (requiring approvals
from UPRR and ODOT Rail);
• Right-in/right-out outbound movements from the
District;
• Left-in movements from southbound State Street
allowed;
• Elimination of northbound left turns to E Avenue to
protect the First Addition Neighborhood;
• Turn-lane storage and spacing coordinated with
both the Terwilliger Boulevard and Foothills Road
intersections; and
• Property coordination with Public Storage
regarding timing and acquisition needs.
56 ATTACHMENT 8/PAGE 56 OF 124
Fig. 35: 2012 Preferred North Portal Access
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Fig. 36: 2010 Proposed Street Car Alignment
State Street, it does not propose a new northern
vehicular access point at Terwilliger into the Foothills
District itself.
2. OGLO Bridge Feasibility Study (2020)
The OGLO Bridge Feasibility Study evaluates
locations for a new regional active transportation
bridge across the Willamette River. Terwilliger
Boulevard is identified as one of only two technically
feasible landing points on the west side of the river
(Alternative A-3). In this concept:
• The bridge would land within the Terwilliger
Boulevard right-of-way;
• The alignment would extend between SW
Terwilliger Boulevard and SE Courtney Avenue; and
• Conceptual mapping shows the bridge arriving at
Terwilliger and crossing State Street just south of
the intersection.
If Alternative A-3 were implemented, the State Street/
Terwilliger intersection would require reconfiguration
to accommodate the bridge approach, including ADA-
compliant slopes, emergency access standards, and
multimodal design requirements. This would elevate
the role of the intersection from a primarily local
The Framework Plan treats the North Portal as a
long-term improvement, expected to be needed
approximately 8–10 years after buildout of the first
redevelopment phase in Foothills.
C. Previous Access Plans
1. Streetcar Refinement Report (2012)
The Streetcar Refinement Report evaluates potential
streetcar alignments and associated roadway
modifications within the Foothills area. Relevant to
future district access, the study:
• Proposes roadway and grading changes to Foothills
Road, including construction of retaining walls, fill,
and structures to support a revised profile;
• Introduces a new vehicular connection from
Foothills Road to Stampher Road; and
• Creates a new approach leg to State Street just
south of the Terwilliger Boulevard intersection,
effectively converting the existing three-legged
intersection into a four-leg configuration.
While this concept influences circulation near
Terwilliger and would change traffic operations at
58 ATTACHMENT 8/PAGE 58 OF 124
Fig. 37: 2020 OGLO Proposed Bridge Crossing (Metro)
access point to a cross-river gateway for regional
walking and biking trips.
Synthesis of Findings from Previous Plans
The transportation chapter of the 2012 Foothills
District Framework Plan reaches a clear policy
conclusion with respect to northern vehicular access:
• Rejected: Terwilliger Boulevard as the preferred
location for a new vehicular access to Foothills;
• Preferred: A new D/E Avenue North Portal serving
as the District’s long-term northern vehicular
gateway.
At the same time, the Streetcar Refinement Report
and OGLO Bridge Feasibility Study both confirm
that the Terwilliger area is physically capable of
accommodating new multimodal or structural
connections, albeit with higher cost and complexity
than the North Portal D/E Avenue option.
Foothills Plan Update Considerations:
1. A northern connection into the Foothills District
is technically feasible and would meaningfully
reduce dependence on the existing Foothills Road/
State Street intersection.
2. The Framework Plan’s preferred D/E Avenue
North Portal remains the most direct and policy-
supported option for a long-term vehicular
gateway to the District. However, the alignment
will need to be adjusted to account for the location
of the future planned Waster Water Treatment
Facility (WWTF)
3. The Terwilliger Boulevard corridor, while not
selected as the preferred vehicular access
location, is demonstrated to be physically feasible
for more complex, higher-cost multimodal
or structural connections (e.g., regional trail
bridge, streetcar, or other transit-supportive
improvements).
For purposes of the Foothills District Plan Update
and associated Traffic Impact Study, these findings
indicate that enhancing north access to the District is
both technically feasible and beneficial for:
• Distributing traffic and reducing pressure on the
single existing southern access at Foothills Road/
State Street;
• Improving multimodal circulation and supporting a
more transit- and trail-oriented district; and
• Strengthening emergency access and overall
system resiliency as redevelopment proceeds.
State Street’s northern corridor contains multiple
viable opportunities for new access—vehicular,
transit-supportive, and/or active transportation—
that could be pursued in phases as part of broader
corridor and regional mobility initiatives.
3.4 PLANNED
& POTENTIAL
TRANSPORTATION
IMPROVEMENTS
1. Transportation System Plan Projects
The City of Lake Oswego Transportation System Plan
(TSP) identifies the following relevant roadway and
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2. Map ID 38 – Highway 43 Bike Lanes: Terwilliger
Blvd to Oak Street
• Bike lanes on both sides of road.
3. Map ID 40 – Willamette River Greenway Trail: Lake
Oswego to Portland (via OR43)
• Conduct refinement study for trail that follows
OR43. See Map ID 95 for alternate route along
shoreline.
4. Map ID 58 – E Ave Sidewalk: State Street to 1st
Street
• New sidewalk to State Street on north side of E Ave.
5. Map ID 87 – Willamette River Greenway Trail:
Foothills Park to Tryon Cove Park
• Completes a connection at the existing north
end Foothills pathway to Tryon Cove Park with
pedestrian bridge.
6. Map ID 95 – Willamette Greenway Trail: Willamette
Shore Line (Trolley) Trail
• Alternate trail route between Lake Oswego and
Portland along river shoreline.
C. Foothills District-Specific TSP
Projects
The TSP includes a list of projects designated as part
of the previous 2012 Foothills Framework Plan.
Presumably, these will be modified based on
recommendations at the conclusion of the currently
in-process Foothills Plan Update
1. Map ID 133 – Foothills Road Upgrade – Phase I:
• Location: North of B Avenue along Foothills Road.
• Purpose: Upgrade street geometry, utilities,
sidewalks, and streetscape to support full buildout
2. Map ID 134 – Foothills Road – Phase II
• Location: North of B Avenue
3. Map ID 135 – Foothills Road Upgrade – Phase II:
Location: Potential new access connection from
Foothills to D and E Avenue or Terwilliger Blvd.
bicycle/pedestrian improvement projects within the
study area. These planned improvements within the
study area are intended to enhance traffic operations,
safety, and multimodal access within the study area.
The projects listed below are noted as “Unfunded” in
the current Capital Improvement Plan for design or
construction.
A. Roadway Projects
1. Map ID 69 – Highway 43 (State Street) / B Avenue:
Intersection Improvement Geometry
• Includes addition of SB right turn lane to increase
capacity.
2. Map ID 110 – Highway 43 (State Street) /
Terwilliger Intersection Improvements
• Includes installation of radar speed feedback signs
to help slow vehicles entering the City.
3. Map ID 225 – B Avenue Improvements:
• Location: State Street to 2nd Street
• Reconstruction of roadway as “Village Anchor
Street”.
4. McVey–Stafford Corridor Improvements
• Location: From State Street south to Overlook
Drive.
• Purpose: Major safety, mobility, and streetscape
upgrades affecting southern gateway to Lake
Oswego.
B. Bicycle & Pedestrian Projects
1. Map ID 28 – Willamette River Greenway Trail:
Roehr Park Pathway Repair/Upgrade
• Reconstruct and relocate existing path to regional
standard (10’ wide).
• Location: Along the riverfront through Foothills,
including:
»Foothills Park → Tryon Cove (bridge crossing)
»Roehr Park upgrades
»George Rogers Park → Riverbend Condos
segment
60 ATTACHMENT 8/PAGE 60 OF 124
Fig. 38: Planned Frog Ferry Docks and Boarding Plan
Fig. 39: Proposed Frog Ferry Dock-Foothills Park
• Purpose: Introduce second vehicular access; reduce
reliance on Foothills Rd/OR 43.
4. Map ID 136 – B Avenue Improvements:
Location: Foothills Rd to Foothills Park
5. Map ID 137 – Willamette Steps
One project within the study area the City will
be conducting within the next year is a study for
improvements to the pedestrian and bicycle crossing
of the railroad tracks on State Street (OR43), between
A Ave and Foothills Road.
The study will evaluate alternatives for improvement
of the conditions at the crossing while addressing
ADA.
Foothills Plan Update Considerations:
1. These long-range projects significantly influence
the feasibility and phasing of redevelopment
within Foothills.
2. The North Portal remains a critical improvement
necessary to relieve pressure on the single
existing access point.
3. Trail projects will elevate Foothills as a regional
multimodal hub, supporting City goals for active
transportation.
4. Coordination with ODOT on OR 43 improvements
will be essential to achieving mobility targets.
5. Funding strategies should explore Metro grants,
ODOT safety programs, and federal discretionary
programs to advance unfunded priorities.
2. Potential Future Regional Ferry
Service
Overview
The Regional Ferry Service Feasibility Study (Friends
of Frog Ferry, 2020) evaluated the introduction
of a new passenger ferry system operating along
the Columbia and Willamette Rivers between the
Vancouver Waterfront and Oregon City. Although
no ferry service currently operates in Lake Oswego,
the proposed system represents a potential future
regional mobility option that would directly interface
with the Foothills District.
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Fig. 40: Existing Foothills Park Dock
This section summarizes the elements of the
system relevant to existing conditions and district
access planning. The proposed ferry service is
intended to provide an alternative to congested
regional corridors (I-5, OR 43, Macadam Avenue)
while increasing travel choices for residents and
visitors. The system is designed to support both
daily commuter travel and discretionary recreational
travel. The Feasibility Study identifies a two-part
route structure:
1. Core North–South Commuter Route
»Connects Vancouver Waterfront → Downtown
Portland riverfront → Lake Oswego (Foothills
Park).
»Serves peak-hour commuter markets and mid-
day discretionary travel.
2. Southern Extension Route
»Connects Lake Oswego → Oregon City.
»Intended to operate as a secondary link,
providing additional regional access.
A. Foothills Park as a Core Terminal
Foothills Park in Lake Oswego is one of the nine
terminal sites evaluated in the feasibility study
and is identified as one of five potential core route
terminals. The study concludes that Foothills Park
could serve two primary ridership markets:
• Lake Oswego commuters traveling to downtown
Portland, representing the core daily ridership
market; and
• Discretionary and recreational riders, including
weekend/seasonal travel by:
»Lake Oswego residents traveling north to
Portland or Vancouver; and
»Visitors from Portland or Vancouver accessing
downtown Lake Oswego via the waterfront.
The Foothills District’s regional location and
proximity to downtown Lake Oswego make Foothills
Park a strategically important node in the potential
ferry network.
B. Foothills Park Dock – Existing
Conditions
Among the nine sites studied, the Foothills Park dock
is one of only three existing docks deemed feasible
for ferry use with only minor modifications. Most
other locations would require major reconstruction
or brand-new dock facilities.
Key characteristics of the existing dock include:
• Dock Size and Configuration
»270 feet of linear dock face available
»8-foot clear pedestrian width
»Floating, modular concrete/foam construction
that provides a stable boarding platform
• Accessibility and Safety
»Not ADA compliant or able to meet ADA
standards without improvements
»Direct connection to the park’s pedestrian
pathway via a single gangway
»Currently lacks ferry-specific safety equipment
(lighting, railings, life rings)
62 ATTACHMENT 8/PAGE 62 OF 124
• Required Modifications for Commercial Ferry
Operations
»Upgrades to dock hardware to support
commercial vessel moorage
»Addition of fendering to protect vessels and the
dock
»Installation of passenger safety features
(lighting, signage, queuing areas)
• Use Agreement Considerations
»The existing dock was constructed with a
Boating Infrastructure Grant (BIG).
»Commercial use may be restricted and would
require coordination with the Oregon State
Marine Board.
These characteristics make the Foothills Park dock
a cost-effective and technically feasible site for
integrating ferry service within the region.
C. Access, Circulation, and Multimodal
Considerations
The feasibility study identifies the Foothills District’s
access characteristics as supportive of future ferry
ridership:
• Pedestrian and Bicycle Access
»Paved connections from surrounding
neighborhoods
»Direct access to Foothills Park pathways
»Proximity to the Willamette Greenway Trail and
the conceptual and not funded Tryon Cove Trail
connection
»Absence of secure bicycle parking near the dock
today
• Transit Access
»TriMet Lines 35, 36, and 78 operate within
0.25–0.75 miles
»No direct transit service into Foothills Park
»Potential need for improved wayfinding and
multimodal links
»Vehicle Access and Parking
• Limited public parking
»Parking located along Foothills Road and in
downtown Lake Oswego
»Existinpublic parking at Foothills Park
roundabout
Foothills Plan Update Considerations:
1. The Foothills District is the only potential ferry
terminal in Lake Oswego and one of the only
existing sites regionally capable of supporting
commercial ferry operations with limited
improvements.
2. If implemented, ferry service would introduce
a new multimodal gateway at Foothills Park,
reinforcing the district’s role as a regional
mobility hub.
3. Existing pedestrian, bicycle, and transit access
to Foothills Park would require enhancements to
support potential future ferry operations.
4. Opportunities to integrate ferry-oriented
wayfinding, trail connections, and multimodal
circulation should be considered as part of the
broader district planning and updated Traffic
Impact Study.
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3. Future Tryon Creek Trail
Overview
The Tryon Creek Cove Trail Master Plan (2018)
describes a potential regional trail connection
linking the Terwilliger Trail, Tryon Creek State
Natural Area, Tryon Cove Park, and the Foothills
District. It identifies feasible crossings of OR 43 and
Tryon Creek, conceptual trail alignments through
Tryon Cove Park, and a general phasing and cost
framework relevant to long-term access planning for
the Foothills District.
The Master Plan identifies an off-street trail concept
that would:
• Cross OR 43 between the Terwilliger Trail area and
Tryon Cove Park;
• Cross Tryon Creek between Foothills Park and
Tryon Cove Park; and
• Traverse Tryon Cove Park to connect regional
trails to the Foothills waterfront.
This would establish a continuous non-motorized
route between regional trail systems and improve
walking and biking access to the Tryon Creek
confluence area and the Foothills District.
A. Preferred Creek Crossing –
Mouth of Tryon Creek
The preferred creek crossing location is at the
mouth of Tryon Creek, using a bicycle/pedestrian
bridge between Foothills Park and Tryon Cove
Park. Conceptual features include a prefabricated
steel truss bridge (approximately 220 feet in total
length, 12–14 feet wide) and a short extension of
the Foothills Park Trail along the riverfront to reach
the south bridgehead. This crossing would provide
a direct off-street connection between the Foothills
waterfront and Tryon Cove Park.
Fig. 41: Planned Tryon Creek Crossing & Trail
Fig. 42: Planned Tryon Creek Bridge Site
64 ATTACHMENT 8/PAGE 64 OF 124
B. OR 43 Crossing Concepts
Two concepts are carried forward for crossing OR 43
and the rail berm to connect the Terwilliger Trail to
Tryon Cove Park:
1. Full Traffic Signal at Terwilliger Boulevard/
Stampher Road
• New 4-way signal at OR 43/Terwilliger/
Stampher, with lane modifications and sidewalk
improvements;
• Shared use of Stampher Road by vehicles,
bicyclists, and pedestrians, with potential safety
and geometric upgrades.
2. Bicycle/Pedestrian Tunnel Under OR 43 and UPRR
• Approximately 330-foot tunnel with lighting and an
ADA-compliant ramp on the west side;
• Direct connection from the east portal into Tryon
Cove Park, avoiding the narrow upper section of
Stampher Road.
The Master Plan does not select a preferred option,
noting that further coordination with ODOT, UPRR,
and BES will be required.
C. Tryon Cove Park – Internal Trail
Network
Within Tryon Cove Park, two complementary trail
types are identified to connect the OR 43 crossing to
the creek bridge:
• Multiuse Trail (Paved): 10–12 feet wide, generally
limited to grades of about 5 percent, aligned
outside the anticipated floodplain mitigation area.
• Soft-Surface Nature Trail: 3–4 feet wide, following
the north bank of Tryon Creek with steeper grades
in some locations and a short segment within the
potential floodplain mitigation area.
A phased approach is identified in which a temporary
soft-surface path could initially use the future
multiuse trail alignment.
D. Relationship to BES and ODOT
Projects
Trail design and implementation are linked to
other planned or potential projects in the corridor,
including:
• Replacement of the Tryon Creek culvert under OR
43;
• Possible upgrades or replacement of the Tryon
Creek Wastewater Treatment Plant and associated
floodplain modifications; and
• Future changes to OR 43 and the rail corridor
requiring state, regional, and railroad coordination.
These efforts may influence trail alignment, the
configuration of the bridge and OR 43 crossing, and
project timing.
E. Phasing and Cost Considerations
The Master Plan outlines a three-phase strategy:
• Phase 1: Tryon Creek bridge and Foothills Park
Trail extension;
• Phase 2: Multiuse and soft-surface trails within
Tryon Cove Park;
• Phase 3: OR 43 crossing (signal or tunnel) and
connections to the Terwilliger Trail.
Order-of-magnitude 2018 cost estimates identify the
bridge and Foothills Park Trail extension, the Tryon
Cove Park trails, and the two OR 43 crossing options
(signal and tunnel) as the primary cost components.
These estimates are planning-level and exclude
right-of-way acquisition.
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Foothills Plan Update Considerations:
The Tryon Creek Cove Trail represents a potential
future multimodal connection that would:
1. Provide an additional off-street access route
between the Foothills waterfront, Tryon Cove
Park, and regional trail systems;
2. Shift some pedestrian and bicycle movements
away from Stampher Road and existing at-grade
highway crossings, depending on the selected OR
43 crossing; and
3. Influence future non-motorized access patterns to
Foothills Park, any future ferry terminal, and the
broader district.
3.5 PARKING
Overview
This section summarizes existing parking conditions
in the Foothills District using data from the 2010
Foothills Framework Plan Parking Study and the
2010 Downtown Lake Oswego Parking Resource
Assessment, which together provide the most recent
comprehensive view of supply and utilization.
(Source: Appendix B-4 Transportation – Parking
Analysis, Foothills District Framework Plan, 2012)
A. Parking Supply
1. Downtown Lake Oswego (West of State Street)
A previous parking analysis for the downtown area
identified the following supply:
• On-street parking: Approximately 780 spaces
• Off-street parking: Approximately 2,170 spaces,
with the majority under private control
• On-street parking included a range of time
restrictions from 15 minutes to 6 hours, with
roughly half of the spaces unrestricted
2. Foothills District
Within the Foothills District and adjacent State Street
corridor, the 2010 parking inventory found:
• On-street parking: Approximately 90 spaces
• Off-street parking: Approximately 1,735 spaces,
serving industrial, residential, and commercial uses
B. Parking Utilization
Downtown Lake Oswego – 2010 Survey Results
• Across the district, demand remained well below
capacity, between 50%-60% at peak periods
reflecting Foothills’ historic mix of industrial and
lower-intensity uses.
Foothills Plan Update Considerations:
1. Both downtown and the Foothills District had
substantial remaining capacity during peak hours.
2. On-street parking in Foothills experienced slightly
higher utilization than the downtown area but did
not reach constrained levels.
3. Off-street parking supply significantly exceeded
demand, with roughly half of spaces occupied
during peak periods.
4. Patterns in the Foothills District were consistent
with downtown peak hours, suggesting similar
mid-day demand characteristics.
These baseline conditions provide a reference point for
evaluating how redevelopment, land use changes, and
transportation investments may affect future parking
needs in the Foothills District.
COMPARISON MATRIX
This matrix compares the 2012 Foothills District
transportation findings with updated 2024/2025
conditions and identifies implications for the 2025 Plan
Update.
66 ATTACHMENT 8/PAGE 66 OF 124
A. Street & Vehicular
Topic 2012 Findings 2024–2025 Updated
Conditions
Implications
OR 43 Traffic Operations A Ave/State St intersection
had the worst congestion;
v/c near 1.0; queues 500–675
ft.
Congestion remains high;
no major capacity projects
implemented; traffic volumes
generally increased citywide;
OR 43 still constrained.
Updated traffic counts
needed; support need
for alternative access
and multimodal demand
reduction.
Foothills Access Points Only one access point
(Foothills Rd at OR
43). Additional access
recommended.
Still only one access; no
new connections built;
redevelopment still
constrained.
Evaluate feasibility of north/
south additional access;
coordinate with ODOT.
Cut-Through Traffic Potential if D Ave extended;
neighborhood diverters
recommended.
Downtown traffic
management updated but
cut-through risk remains.
Assess traffic diversion
impacts in new scenarios.
B. Pedestrian
Topic 2012 Findings 2024–2025 Updated
Conditions
Implications
Sidewalk Network Gaps on C Ave, D Ave, and
Foothills Rd; uneven rail
crossing.
Sidewalk gaps remain; ADA
program improved crossings
citywide but not fully in
Foothills.
Update full sidewalk
inventory; include ADA
compliance analysis.
Trail Network ------Two primary off-street trails
serve the district, including
the Kincaid Curlicue Corridor
and the William Stafford
Pathway, and the 1.5-mile
section of the Wilamette
Greenway Trail in Foothills
Park.
Future planning should
preserve off-street trail
access from State Street to
the Willamette Greenway
Trail with planned extensions
to Tryon Cove Park.
C.Bicycle
Topic 2012 Findings 2024–2025 Updated
Conditions
Implications
Bike Facilities Only bike lane: WB B Ave; low
volumes.
Citywide bike network
expanded but Foothills still
lacks protected or continuous
facilities.
Identify bike connection
priorities to Downtown,
Tryon Cove, and Willamette
Greenway Trail.
Trail Network ------Two primary off-street trails
serve the district, including
the Kincaid Curlicue Corridor
and the William Stafford
Pathway, and the 1.5-mile
section of the Wilamette
Greenway Trail in Foothills
Park.
Future planning should
preserve off-street trail
access from State Street to
the Willamette Greenway
Trail with planned extensions
to Tryon Cove Park.
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D. Transit
Topic 2012 Findings 2024–2025 Updated
Conditions
Implications
Bus Service Existing local service with
limited frequency.
Updated TriMet routes and
schedules; service reliability
varies; no major new transit
hubs built.
Coordinate with TriMet for
future scenarios; consider
transit priority on OR 43.
Streetcar Feasibility Evaluated alignments; part
of DEIS.
Streetcar project dormant;
corridor planning may evolve
with Metro initiatives.
Treat streetcar as long-term
option; incorporate ROW
preservation only.
E. Freight & Rail
Topic 2012 Findings 2024–2025 Updated
Conditions
Implications
Freight on OR 43 1–3% heavy vehicle
traffic; peaks coincide with
commuters.
Similar patterns; freight
still constrained by roadway
geometry.
Consider freight impacts
when evaluating OR 43
mitigation options. Consider
sludge truck traffic from
WWTF in and out of the
district.
F. Planned Transportation System Improvements (TSP & CIP)
Topic 2012 Findings 2025-2031 CIP Status Implications
North Portal
Improvements (Foothills
Rd Phase 2)
Identified as critical to district
redevelopment.
Unfunded; $2.75M estimate.Reconfirm alignment and
staging for redevelopment
phasing.
McVey–Stafford
Corridor
Identified for long-term
capacity and safety upgrades.
Unfunded, major projects
($22.5M each segment).
Potential to influence OR
43 performance; monitor
for partnership/grant
opportunities.
Willamette River
Greenway Trails
Planned to connect Foothills
to regional network.
Several segments unfunded,
but remain priority trail
projects.
Strengthen multimodal
connections in Foothills
alternatives.
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4ATTACHMENT 8/PAGE 70 OF 124
4INFRASTRUCTURE
4.1 Stormwater
4.2 Sanitary Sewer
4.3 Water Supply
4.4 Franchise Utilities
4.5 Tryon Creek Waste Water Treatment Plant
Appendix A:Foothills District Plan Update-Inventory and Analysis Summary Apex Project 25010940
ATTACHMENT 8/PAGE 71 OF 124
INFRASTRUCTURE
Overview
The following is an integrated, synthesized summary
of 2012 existing conditions and recommendations for
the Foothills District infrastructure alongside the 2025
APEX Plan Update – Inventory and Analysis Summary
of the Foothills District Infrastructure.
This summary highlights what has stayed consistent,
what conditions have changed, and where the 2025
work provides updated context or new direction.
4.1 STORMWATER
A. Consistent Conditions (2012 →
2025)
1. Undersized 24-inch storm pipe under State Street/
railroad tracks
Identified in 2012 as causing surcharging and
upstream flooding; still identified in 2025 as a critical
deficiency receiving runoff from A Ave, B Ave, C Ave,
and Iron Mountain Blvd (≈90 acres). Needed upgrades
remain unresolved.
• 2012: Undersized, needs upsizing to at least 30”
(2011 FAN study).
• 2025: Still undersized; rerouting + upsizing
recommended.
2. High flood risk in the northern Foothills area
Portions of the Tryon Creek and Willamette River
basins remain located below the 100-year flood
elevation.
3. Limited stormwater treatment facilities
Very limited treatment existed in 2012; 2025 notes the
same and adds that any redevelopment will require
substantial new stormwater water-quality facilities.
B. New/Updated Conditions &
Opportunities (2025)
1. Private water-quality pond + emergency pump
station
APEX identifies this system (north of the site, near
Tryon Creek TCWTP) as at or above capacity and in
need of possible upgrades if retained.
2. More flexible stormwater alignment possibilities
2025 identifies opportunities to reroute storm mains
to:
• avoid development parcels,
• relocate the 24-inch basin crossing,
• provide more efficient drainage paths.
3. Future master plan may require large new
treatment facility
A new district-scale stormwater facility could
significantly shape redevelopment layout (buildings,
roads, utilities).
72 ATTACHMENT 8/PAGE 72 OF 124
Fig. 43: Existing Stormwater Map
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4.2 SANITARY SEWER
A. Consistent Conditions (2012 →
2025)
1. Foothills Lift Station (SPS00003) at or near
capacity
• 2012: Recently improved but lacks capacity for
new development.
• 2025: Still requires upgrades or replacement; to
be integrated with redevelopment.
2. Undersized 24-inch sanitary interceptor segment
in Foothills Road
• 2012: Identified as a 140-foot bottleneck causing
upstream surcharging.
• 2025: Still over capacity; Master Plan recommends
a parallel 24-inch relief pipe or replacement with a
42-inch pipe.
3. Need for coordination with Portland’s interceptors
Both sets of documents note the presence of major
Portland sewer interceptor lines traveling through
the district.
B. New/Updated Conditions &
Opportunities (2025)
1. New Wastewater Treatment Facility (WWTF)
planned to open by 2029
• The replacement eliminates multiple existing
aboveground sanitary lines (24”, 30”, 36”),
allowing better development flexibility.
• A new alignment for three new underground
interceptors will be coordinated with the Master
Plan.
2. Lift station additions with redevelopment
Development on the east side may require a new lift
station to serve areas flowing to the new TCWTP.
74 ATTACHMENT 8/PAGE 74 OF 124
Fig. 44: Existing Sanitary Sewer Map
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4.3 WATER
SUPPLY
A. Consistent Conditions
(2012 → 2025)
1. No existing water system
deficiencies
Both areas report adequate system
condition and capacity.
2. Looped water system essential
2012 recommended looping; 2025
continues this recommendation
(new 8–12” mains looped from the
12” N State Street line).
B. Updated Conditions
(2025)
1. Presence of a 42-inch
transmission line
2025 notes a major line along the
west side of the Garden/Upper Shelf
Districts—not highlighted in 2012.
2. High service pressures expected
due to low elevation
APEX anticipates adequate pressure
for both potable and fire flow without unusual
upgrades.
Fig. 45: Existing Potable Water Map
76 ATTACHMENT 8/PAGE 76 OF 124
4.4 FRANCHISE
UTILITIES
A. Consistent Conditions
(2012 → 2025)
1. No major deficiencies in private
utilities (power, gas, telecom)
Both 2012 and 2025 describe
existing systems as functional and
adequate for future modifications.
2. Replacement likely for
redevelopment
Telecommunication and gas
infrastructure can be rerouted with
relative ease; PGE infrastructure
requires more planning and
coordination.
B. Updated Conditions &
Opportunities (2025)
1. Potential replacement or upgrade
of PGE substation
APEX references the substation on
the Upper Shelf District and notes:
• It may need upgrades,
• Replacement remains possible
depending on redevelopment.
2. Joint underground utility corridors
2025 indicates telecom, cable, and phone systems
will likely share conduits with new underground
PGE facilities.
Fig. 46: Existing Private Utility Map
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4.5 TRYON
CREEK
WASTEWATER
TREATMENT
PLANT (TCWTP)
A. 2012 Conditions
• No replacement of the TCWTP
• Acknowledged above-grade
sewer lines needing seismic
reinforcement but did not
anticipate full treatment plant
replacement.
B. 2025 New Conditions:
• New TCWTP scheduled to be
operational by 2029, greatly
reducing odor, noise, and visual
challenges for redevelopment.
• Anticipates the possibility of
placing underground the three
large above-grade pipelines.
• Will include modern technology
and design compatible with urban
redevelopment.
• Master plan coordination essential—treatment
plant components can be designed to complement
future development.
• Potential for district energy generation from the
plant.
Fig. 47: Existing Tryon Creek TCWTP
78 ATTACHMENT 8/PAGE 78 OF 124
Foothills Plan Update Considerations:
1. Core system deficiencies identified in 2012
remain largely unresolved in 2025
»Undersized 24-inch storm and sanitary pipes.
»Limited stormwater treatment and high flood
vulnerability.
»Foothills Lift Station capacity limitations.
2. 2025 brings new redevelopment opportunities +
constraints
»TCWTP replacement transforms the
development potential of the North District.
»New stormwater treatment upgrades will be
required at scale.
»Major utility rerouting appears necessary for
development flexibility.
»Opportunities exist to consolidate or relocate
franchise utilities, particularly the PGE
substation.
3. Infrastructure coordination will be significantly
more complex in the 2025 plan
»Redevelopment must be closely integrated with
the TCWTP replacement project.
»Multiple utility systems (storm, sanitary, power,
telecom) may require new alignments to unlock
developable parcels.
»Large treatment facilities (storm + wastewater)
will influence district layout more than they did
in 2012.
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5ATTACHMENT 8/PAGE 80 OF 124
LAND USE
5.1 Existing Plans/Policies
5.2 Existing Zoning
5.3 Current Uses & Development
5.4 Parks and Open Space
5.5 Comparison of 2012 Foothills Framework
Plan Policy Context and 2024–2025 Policy
Requirements
5.6 Education5ATTACHMENT 8/PAGE 81 OF 124
LAND USE
Overview
The following existing land use and policy context
establishes the baseline for future land use, zoning,
and development alternatives as an update to the land
use–related existing conditions analysis performed for
the 2012 Foothills District Framework Plan. It has two
primary objectives:
1. Document and evaluate current plans, policies,
and regulations that govern land use, transportation,
housing, and development within the Foothills District,
including all updates since 2012.
2. Describe existing uses and built conditions, including
redevelopment potential and identification of uses
incompatible with the District’s intended future as a
mixed-use extension of Downtown Lake Oswego.
2012 Plan Findings:
Appendix B-8 (Land Use) found existing zoning
(Industrial, EC, R-0) inconsistent with desired mixed-
use vision . Appendix B-9 (Education) analyzed
potential tax-increment impacts on Lake Oswego
School District.
Baseline Summary:
Land use policy still supports a Town Center-scale,
mixed-use district per Metro 2040 Growth Concept.
The 2012 findings on zoning and TIF funding remain
applicable references for current regulatory updates.
Overall Baseline Conclusion:
The 2012 Foothills Framework Plan established robust,
site-specific data on soils, groundwater, floodplain,
utilities, transportation, and land use. Most conditions
identified then remain relevant and form the foundation
for the 2025 Inventory & Analysis. The current Task C
scope should focus on:
1. Updating data to reflect new developments (North
Anchor, Windward, TCWTP replacement).
2. Re-verifying infrastructure capacities and floodplain
limits.
3. Integrating updated policy frameworks (Parks 2040,
TSP 2022, Metro 2040 updates).
5.1 EXISTING PLANS/
POLICIES
A. Metro 2040 Growth Concept – Town
Center Designation
• Metro’s 2040 Growth Concept identifies two Town
Centers in Lake Oswego:
»Downtown Lake Oswego (East End Commercial
Area)
»Lake Grove Village Center
The Foothills District lies immediately adjacent to and
functionally integrated with the Downtown/East End
Town Center. Town Centers are expected to:
• Support higher-density housing and employment
• Provide a compact, walkable, mixed-use environment
• Be served by frequent transit and strong bicycle/
pedestrian networks
• Reduce reliance on auto travel and large surface
parking areas
• Serve surrounding neighborhoods within a two-mile
radius
These expectations directly align with the intended
transformation of Foothills from an industrial/service
district into a mixed-use, transit-supportive waterfront
district.
Foothills Plan Update Considerations:
1. Foothills should plan for a high-density, transit-
supportive, mixed-use district integrated with
Downtown.
2. Higher FAR, reduced parking requirements, and
multimodal infrastructure are consistent with
regional expectations.
3. The Plan Update should reaffirm Foothills as part of
the regional Town Center growth strategy.
82 ATTACHMENT 8/PAGE 82 OF 124
B. City of Lake Oswego
Comprehensive Plan
(2014, 2035 Horizon)
The City’s Comprehensive Plan was
fully updated in 2013–2014 following
state Periodic Review. Several
chapters provide policy direction
highly relevant to Foothills.
1. Urbanization
Reinforces Metro 2040 Growth
Concept design types and identifies
Downtown as a Town Center.
• Directs growth toward centers and
corridors through redevelopment
and intensification.
• Supports efficient use of land,
infrastructure, and public
investment.
• Encourages mixed-use, walkable
development patterns in proximity
to transit.
Fig. 48: Existing Comprehensive Plan Map
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 83ATTACHMENT 8/PAGE 83 OF 124
Reinforces redevelopment of underutilized industrial
land adjacent to Downtown into a higher-intensity
mixed-use district.
2. Complete Neighborhoods & Housing
• Calls for diverse housing types and densities in
centers to meet long-term housing needs.
• Requires compliance with Statewide Planning Goal
10 (Housing) and periodic updates through a Housing
Needs Analysis (HNA).
• Encourages siting higher-density multifamily housing
in centers and mixed-use districts.
New context since 2012:
• The 2023 Housing Needs Analysis (HNA) identifies
a need for ~1,968 new dwellings by 2043, including
substantial demand for multifamily and middle
housing.
• The Housing Production Strategy (HPS) identifies
tools such as zoning changes, parking reform,
financial incentives, and streamlining of mixed-use/
multifamily development.
Foothills Plan Update Considerations:
Foothills is one of the City’s most capable areas for
meeting multifamily housing production targets.
3. Connected Community (Transportation – Goal 12)
• Prioritizes multi-modal transportation within
centers: walking, biking, transit, and safe local
access.
• Reinforces the importance of the local street grid,
connections across Highway 43, and improved
multimodal circulation.
• Relies on the Transportation System Plan (TSP) for
functional classifications and performance measures.
Foothills Plan Update Considerations:
1. OR-43 (State Street) remains a constrained
regional facility; redevelopment must rely on local
access, street grid enhancements, and multimodal
improvements rather than expanded auto capacity.
2. Supports a fine-grained internal street network
consistent with the 2012 Framework Plan.
3. Inspiring Spaces & Places
• Supports high-quality, human-scale design,
especially in centers and riverfront areas.
• Calls for enhanced public access to the Willamette
River, high-quality open spaces, and context-
sensitive architecture.
• Encourages active ground floors, pedestrian
amenities, and strong public realm features.
Foothills Plan Update Considerations:
Design of new mixed-use buildings and public spaces
must create a distinctive waterfront district that
complements Downtown character while enabling
contemporary architectural expression.
C. Parks Plan 2040
Parks Plan 2040 establishes the following priorities
relevant to Foothills:
• Expand riverfront access and recreational
opportunities along the Willamette River.
• Improve trail connections between parks, the
riverfront, Downtown, and neighborhoods.
• Support natural resource restoration along Tryon
Creek and the riverbank of the Willamette River.
• Integrate new parks and natural areas into
redevelopment.
Foothills Plan Update Considerations:
1. The district presents the largest opportunity in
the city for expanded Willamette River access and
improved connections and improved connections
between Foothills Park, Roehr Park, and Tryon Cove
Park and Natural Area.
2. Public space integration must be a core component
of land use and zoning updates.
3. Coordination with TCWTP replacement opens new
long-term park + greenway possibilities.
Foothills Plan Update Considerations:
84 ATTACHMENT 8/PAGE 84 OF 124
D. Housing Needs Analysis (2023) &
Housing Production Strategy (2024)
Housing Needs Analysis (2023)
The City of Lake Oswego adopted an updated Housing
Needs Analysis (HNA) in 2023 to identify housing need
and residential land capacity through 2043. The HNA
establishes a net new housing need of 1,968 units
citywide, with an approximate mix as follows:
• 761 single-detached units (≈39%)
• 220 townhomes (single-attached) (≈11%)
• 309 duplex–fourplex units (“middle housing”) (≈16%)
• 677 units in buildings with 5+ units (≈34%)
The HNA finds that remaining residential capacity
citywide is approximately 1,327 units, resulting in a
long-term deficit of roughly 640 units, with shortages
across low-, medium-, and high-density housing
categories. This capacity shortfall underscores the
importance of mixed-use districts and redevelopment
areas—such as Foothills—in accommodating a
meaningful share of future housing growth.
Housing Production Strategy (2024)
The City adopted its Housing Production Strategy
(HPS) in November 2024 to implement specific actions
required under Statewide Planning Goal 10 and to
address the housing needs identified in the 2023
HNA. The HPS outlines a range of strategies and
implementation actions, organized by timeframe, to
increase housing production, expand housing choice,
and support affordable housing.
Key HPS strategies that are directly relevant to
Foothills include:
• Rezoning to increase housing capacity--
The HPS identifies rezoning as a near-term strategy
to address residential land shortages by enabling
additional housing—particularly multifamily and
middle housing—on underutilized or non-residential
land. Rezoning in Foothills is directly tied to this
strategy and is intended to support the City’s overall
housing capacity goals.
• Removal of minimum parking requirements--
The City has removed minimum parking
requirements citywide. This action is an adopted HPS
strategy intended to eliminate parking mandates
as a barrier to housing production, particularly
for multifamily and mixed-use development, while
allowing flexibility in how parking is provided.
• Use of Tax Increment Financing (TIF) to support
affordable housing-- The HPS specifically identifies
Foothills as a priority area for applying TIF to
support affordable housing. Recommended actions
include:
»Incorporating affordable housing policies into the
Foothills Refinement Plan;
»Incorporating affordable housing into the Foothills
Urban Renewal Plan;
»Including affordable housing as an eligible
“project” within the Urban Renewal Plan and
considering a dedicated set-aside of TIF funds for
affordable housing;
»Using TIF to support partnerships with affordable
housing developers.
• Public-private partnerships for affordable housing--
The HPS emphasizes partnerships—particularly
in redevelopment areas—to advance government-
subsidized affordable housing, including projects
supported through urban renewal tools.
Foothills Plan Update Considerations:
1. The Foothills District is expected to accommodate
a portion of Lake Oswego’s long-term housing
need, including multifamily and mixed-use housing
identified in the HNA.
2. Land use and zoning updates in Foothills should be
consistent with adopted HPS strategies, including
rezoning to address residential capacity and use of
TIF for affordable housing.
3. The Foothills Mixed Use (FMU) designation allows
housing and employment uses in a compact,
walkable district consistent with adopted policy.
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E. Transportation System Plan (2014,
with subsequent amendments)
Baseline Standards
The City’s 2014 TSP establishes:
• Functional classifications (OR-43 = major arterial;
Foothills Road = collector)
• Multi-modal performance standards
• Downtown/Foothills circulation and multimodal
projects
• Planned trail and greenway connections
Key Foothills-relevant elements include:
• Improved State Street/Foothills Road intersection
• A/B street extensions and local street connectivity
• Multi-use paths along the riverfront and rail corridor
• Support for transit service improvements
Post-2014 Amendments
• Ordinance 2725 (2016) updated Goal 12 “Connected
Community” and aligned TSP policies with the Comp
Plan.
• OR-43 corridor safety updates and regional
multimodal studies (by ODOT & Metro) further
emphasize non-auto approaches (e.g., transit
priority, bike/ped facilities, access management).
Foothills Plan Update Considerations:
Future alternatives should conform to existing
TSP standards and incorporate Climate-Friendly &
Equitable Communities (CFEC)/ State Transportation
Planning Rule (TPR) expectations.
F. State Transportation Planning Rule
(TPR) – 2024 CFEC Amendments
In 2022, the State adopted sweeping changes to the
Transportation Planning Rule as part of the Climate-
Friendly & Equitable Communities (CFEC) program.
In December 2024, the City adopted amendments to
comply with the CFEC Phase B parking requirements.
Key changes affecting Foothills include:
1. Climate-Friendly Areas (CFAs)
• CFEC requires metropolitan cities to designate
Climate-Friendly Areas, with local timing and land
use actions determined by City policy and plans.
2. New performance standards
• CFEC and TPR replace congestion metrics with
vehicle miles traveled (VMT), mode share,
multimodal access, and climate outcomes.
3. Parking reform
• Lake Oswego implemented CFEC Phase B with
citywide parking reform eliminating minimums and
adding parking maximums and climate standards
Foothills Plan Update Considerations:
Land use alternatives should assume:
1. Align Foothills alternatives with adopted CFEC-
related Comprehensive Plan and code amendments
2. Assume parking is governed by market demand and
applicable maximums
3. Prioritize pedestrian, bicycle, and transit
connectivity consistent with CFEC and TPR
4. Consider climate-responsive site design, such as
tree canopy and EV infrastructure.
5. Coordinate assumptions with the City’s future
Transportation System Plan update.
G. Neighborhood Plans
Neighborhood plan policies for nearby districts—Old
Town, First Addition, Lakewood—establish design
compatibility and transition expectations:
• Sensitivity to neighborhood scale, massing
transitions, and adjacent residential forms
• Enhancement of pedestrian/bicycle connections to
Downtown and the riverfront
• Maintaining high-quality design character while
accommodating needed infill
86 ATTACHMENT 8/PAGE 86 OF 124
Foothills Plan Update
Considerations:
Future zoning and development
standards should consider
context-sensitive height and form
transitions at the District’s edges.
5.2 EXISTING
ZONING (2025
SNAPSHOT)
Overview
Foothills currently includes:
• I (Industrial) – legacy industrial
parcels remain.
• EC (East End General
Commercial) – some parcels
near Oswego Village.
• R-0 (High Density Residential) –
Oswego Pointe area.
• PF (Public Facilities) – Tryon
Creek TCWTP site.
General location of
Foothills Mixed-Use Zone
(Foothills Plan-Adopted
2012)
General location of
Foothills Mixed-Use Zone
(Foothills Plan-Adopted
2012)
Fig. 49: Existing Zoning Map
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 87ATTACHMENT 8/PAGE 87 OF 124
B. 2025 Status: Remaining Inconsistencies
Despite the Foothills Mixed-use (FMU) zone Comprehensive Plan designation, inconsistencies remain.
Foothills Plan Update Considerations:
1. Zoning must be updated to facilitate CFA-level intensity, including higher FARs, and greater heights.
2. Legacy industrial zoning is incompatible with long-term redevelopment goals.
3. Public Facilities zoning on the TCWTP site must be addressed as replacement advances.
2025 Status: Remaining Zoning Inconsistencies
Area 2012 Issue Identified 2025 Status Remaining Gap
Industrial parcels Uses incompatible with mixed-
use
Some industrial uses remain Require rezoning/removal of
nonconforming uses
FAR/Heights Too low for Town Center
densities
FMU allows more but limited
uptake
May require further
increases or bonuses
Parking Ratios too high CFEC removes minimums ---
Public access to river Limited due to Tryon Creek
Wastewater Treatment (TCWTP)
TCWTP replacement
underway
Rezoning + parks planning
needed
Street grid Lack of connectivity Some conceptual planning Requires adoption in updated
Framework Plan
5.3 CURRENT USES
AND DEVELOPMENT
PATTERN
A. Existing Use Categories
Based on existing City zoning, assessor data, and field
review, current Foothills District uses can be grouped
into:
1. Industrial & Utility Uses
»Former industrial buildings and warehouses
»Portland BES Tryon Creek Wastewater Treatment
Plant (TCWTP)
»Outdoor storage and service uses
2. Commercial Uses
»Oswego Village shopping center
»Small-format service and retail establishments
A. 2012 Findings on Zoning Inconsistencies
Appendix B-8 found that 2012 zoning:
• Did not allow the intensity of development envisioned (low FARs, low height caps).
• Encouraged auto-oriented patterns (high parking ratios, surface lots).
• Required significant rezoning to achieve a mixed-use pattern.
• Was inconsistent with Metro’s Town Center designation and the planned streetcar.
88 ATTACHMENT 8/PAGE 88 OF 124
Fig. 50: Existing Uses Map
3. Residential Uses
»Oswego Pointe Apartments
»Scattered small multifamily
or single-story residential
buildings
4. Institutional & Public Uses
»Parks (Foothills Park, Roehr
Park, Tryon Cove)
»Public utilities and pump
stations
5. Surface Parking & Vacant/
Underutilized Parcels
»Large lots devoted to vehicle
storage
»Properties with low
improvement value and
minimal built form
This pattern is largely unchanged
from the 2012 Framework Plan.
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B. Building Age,
Condition & Improvement
to Land Value
Preliminary review of County
assessor data and site
characteristics indicates:
• Many industrial and service
buildings in Foothills pre-
date 1960–1980, with limited
reinvestment.
• Improvement values are low
relative to land value on several
parcels.
• Surface parking areas and one-
story structures reduce overall
site utilization.
• Floodplain constraints and
previous fill conditions continue
to influence development
feasibility.
A complete parcel-level
redevelopment potential analysis,
supported by assessor-provided
improvement values, is indicated in
Figure 51.
C. Redevelopment
Potential – Likely “First-
Mover” Sites
Based on land value, building
condition, location, utilization,
and adjacency to coming infrastructure and TCWTP
changes, the following categories are likely early-
phase redevelopment candidates:
1. Underutilized industrial sites with single-story
structures and high land-to-improvement ratios.
2. Large surface parking lots with immediate
adjacency to Downtown and State Street.
Fig. 51: Existing Improvement to Land Value Ratio Map
90 ATTACHMENT 8/PAGE 90 OF 124
3. City-owned or public agency lands, where
coordinated redevelopment is feasible.
4. Parcels benefiting directly from an additional
future access from State Street/HWY 43, future A
Avenue and B Avenue connections, internal circulation
improvements, and enhanced access to the riverfront.
D. Uses Likely Incompatible with Future
Mixed-Use Patterns
Based on the policies summarized above, the following
existing uses would be considered incompatible or
nonconforming in a future mixed-use, Town Center–
supportive district:
• Large-scale industrial or warehousing operations
• Auto-oriented uses with extensive surface parking
• Commercial uses with drive-throughs, curb cuts, or
limited street frontage activation
• Outdoor storage yards or equipment storage
• Utility or public works facilities not requiring a
Foothills location
• Land-intensive, low-employment uses inconsistent
with riverfront mixed-use development
These uses should be monitored for transition and
redevelopment opportunities.
E. Key Land Use and Development
Findings & Baseline Implications
1. Foothills continues to be aligned with Metro’s Town
Center policies, and its role in supporting Downtown
intensification remains central.
2. The 2014 Comp Plan update, 2014 TSP, and 2022
CFEC/TPR amendments create a stronger regulatory
mandate for compact, multimodal, climate-aligned
development than existed in 2012.
3. Housing needs (HNA 2023) and the Housing
Production Strategy (HPS) significantly increase the
strategic importance of Foothills to meet multifamily
housing targets.
4. Current uses remain low-intensity and auto-
oriented, providing substantial redevelopment
opportunity.
5. Floodplain conditions, access improvements, and
wastewater treatment plant replacement remain
key constraints that must be addressed to phase
redevelopment.
6. Future land use alternatives should consider
reduced parking, higher density, an emphasis on
multimodal infrastructure, and full integration with
Downtown urban form.
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5.4 PARKS AND OPEN
SPACE
Overview
The Foothills District sits at the center of Lake
Oswego’s Willamette River–oriented park system
and contains or borders several key waterfront
parks, including Foothills Park, Roehr Park, Tryon
Cove Park and Natural Area, and the Kincaid Curlicue
Corridor. The 2012 Foothills Framework Plan and
the Parks Plan 2040 are highly compatible and
mutually reinforcing. The Framework Plan provides
place-specific design moves focusing on access,
connectivity, and the introduction of new linkages
and public spaces, while Parks Plan 2040 highlights
restoration, river access, connectivity, stewardship,
and the enhancement of natural areas. The Foothills
District Plan Update should integrate both sets
of direction to create a cohesive, connected, and
ecologically grounded riverfront district that
enhances Lake Oswego’s premier public spaces.
A. Regional + Local Parks
Context
1. The Foothills District Contains Significant
Riverfront Park Assets
• The Framework Plan identifies 7.5 acres in
Foothills Park, 6.88 acres in the northern portion
of Roehr Park, and 3.6 acres of the Kincaid
Curlicue Corridor within the district boundary.
These parks anchor the district’s identity and
provide the foundation for improved public realm
and waterfront access.
• Parks Plan 2040 similarly recognizes Foothills
Park, Roehr Park, Tryon Cove Park, and George
Rogers Park as key riverfront sites whose access
and recreational value should be enhanced.
Fig. 52: 2012 Planned Connections
Fig. 53: 2012 Proposed Tryon Creek Crossing
92 ATTACHMENT 8/PAGE 92 OF 124
B. Connectivity & Access:
A Shared Priority
1. 2012 Framework Plan
Recommendations
A core theme of the Framework
Plan is overcoming longstanding
barriers between Downtown,
Foothills, and the waterfront. Major
actions include:
• Improving the Curlicue Trail
(alignment, width, materials,
grade solutions) to enhance
access from the south.
• Creating the Willamette Steps,
an 80-foot-wide “vertical
park” connecting State Street
to Foothills Park along the B
Avenue right-of-way.
• Establishing new “green
fingers”—pedestrian-scaled
greenway corridors extending
from Foothills Park northward
into new development areas,
increasing transparency and
access to the riverfront.
• Extending the Willamette
Greenway Trail across Tryon
Creek to connect Foothills
Park to Tryon Cove Park and
ultimately to Tryon Creek State
Park.
Fig. 54: Existing Parks and Open Space
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 93ATTACHMENT 8/PAGE 93 OF 124
2. Parks Plan 2040 Alignment
Parks Plan 2040 strongly reinforces these goals:
• Complete Lake Oswego’s Willamette River
Greenway segment, including a pedestrian/bike
bridge across Tryon Creek and a future connection
north to Portland.
• Improve ADA accessibility, trail quality, and user
amenities on riverfront and regional trails.
• Provide new trail access to Tryon Cove and Tryon
Creek State Park, identified as a priority for filling
geographic gaps.
3. Integrated Conclusion:
The Foothills District Plan Update should treat the
district as the pivotal missing link in achieving the
City’s regional trail and river access objectives.
Both plans clearly prioritize bridging Tryon Creek,
strengthening connections to Downtown, and
creating new high-quality pedestrian corridors.
C. River Access & Waterfront
Activation
1. 2012 Framework Plan
Multiple new public spaces are envisioned:
• New public plaza at the B Street terminus—a
gateway experience reflecting the materials and
quality of Foothills Park.
• Streetcar terminus plaza near State Street and
Millennium Plaza, extending the civic public realm
toward Foothills Park.
• Pocket plazas and courtyards within private
development to create intimate spaces and
reinforce pedestrian corridors.
2. Parks Plan 2040
Parks Plan 2040 highlights the community’s strong
desire for:
• Enhanced river access, including opportunities
for overlooks, water-edge access, non-motorized
boating, and additional locations to engage
in river-based recreation such as swimming,
kayaking, and paddle boarding.
• Broader integration of waterfront parks as “scenic,
inspiring places” supporting varied experiences
and improved water access facilities.
3. Integrated Conclusion:
Where the Framework Plan focuses on physical
realm interventions, Parks Plan 2040 provides the
programmatic justification—the community wants
more ways to engage with the river. New plazas,
steps, and river pathways directly advance these
community goals.
D. Natural Areas, Restoration &
Stewardship
Fig. 55: Existing Foothills Park
Fig. 56: Existing Mouth to Tryon Creek
94 ATTACHMENT 8/PAGE 94 OF 124
While the Framework Plan focuses on built public
realm elements, Parks Plan 2040 introduces critical
natural-resource considerations for Foothill’s
riverfront environment.
1. Parks Plan 2040 Priorities Relevant to Foothills:
• Stabilization and restoration of natural areas,
including invasive species removal, new plantings
with natives and climate adaptive species, erosion
control, and protection of high-functioning habitat
areas.
• Tryon Cove Park and Natural Area is explicitly
identified as a priority natural area for
stabilization, and while Foothills Park is primarily
managed as a developed park, it includes a Class
II (marginal) habitat area at its south end along
the river near Roehr Park.
• Emphasis on preserving and interpreting the
area’s cultural and historic landscape, including
iron industry remnants present in Foothills Park
and George Rogers Park, and integrating new
Indigenous interpretive elements that honor native
history and culture.
2. Integrated Conclusion:
The Plan Update should incorporate ecological
enhancement and restoration alongside new access
improvements, particularly at Tryon Cove, the
riverbank edges of Foothills Park, and the Kincaid
Curlicue Corridor.
E. Policy Alignment: Comprehensive
Plan Consistency
1. 2012 Framework Plan cites relevant
Comprehensive Plan policies:
• Connectivity of parks via pathways (Policy 6)
• Multimodal accessibility (Policy 8)
• Accessibility for all users (Policy 10)
• Integration of open space with view corridors
(Policy 13)
2. Parks Plan 2040 similarly reinforces:
• Prioritizing ADA improvements to trails and parks
• Integration of nature into all parks and
neighborhoods
• Connecting the Willamette River corridor to
regional systems
3. Integrated Conclusion:
The 2012 Framework Plan’s connectivity and access
recommendations remain consistent with, and are
strengthened by, the citywide policy direction in
Parks Plan 2040.
Foothills Plan Update Considerations:
1. Make Foothills the riverfront connectivity hub
»Implement the long-sought Tryon Creek
crossing, improve the Kincaid Curlicue Corridor,
and formalize multiple north–south green
corridors.
2. Reinforce Foothills Park as a regional riverfront
destination
»Add new arrival experiences (Willamette Steps,
B Avenue Plaza), enhanced ADA routes, and
expanded river engagement opportunities.
3. Integrate natural resource stewardship with
redevelopment
»Restore Tryon Cove’s ecology, manage invasive
species, and expand riparian and upland habitat
consistent with Parks Plan 2040 natural area
recommendations.
4. Expand the diversity of public spaces
»Add inclusive play, plazas, pocket parks, dog
areas, cultural interpretation spaces, and river
overlooks that respond to changing recreation
preferences.
5. Ensure design continuity and quality
»New public spaces should match the material
palette, quality, and character of Foothills Park,
Millennium Plaza Park, and the city’s waterfront
precedents.
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5.5 COMPARISON OF 2012 FOOTHILLS FRAMEWORK
PLAN POLICY CONTEXT AND 2024–2025 POLICY
REQUIREMENTS
The table below and on the following pages summarizes how the plan, policy, and zoning environment has evolved
since adoption of the 2012 Foothills Plan and identifies considerations for the current Plan Update.
B. Lake Oswego Comprehensive Plan (2014)
Policy Area 2012 Context 2024–2025 Context Implications
Urbanization Strong support for
redevelopment but lacking
updated tools.
Fully aligned with Metro
2040; clear call for center-
based intensification.
Foothills redevelopment
is explicitly supported and
strategically important.
Complete
Neighborhoods &
Housing
General support for housing
diversity.
2023 HNA identifies need
for ~1,968 units; centers
expected to absorb higher-
density MF housing
Foothills is essential
for meeting multifamily
and mixed-use housing
production.
Connected Community
(Goal 12)
Pre-2014 assumptions about
transportation.
2014 TSP + amendments
emphasize multimodal
mobility, connectivity, and
safety.
Foothills must build a multi-
modal local grid, improve
State Street access, and
reduce auto-dependence.
Inspiring Spaces &
Places
Limited attention to riverfront
design.
Stronger direction for public
realm, placemaking, and
river access.
Foothills should create a
signature waterfront district.
A. Metro 2040 Growth Plan & State of Oregon CFEC
Policy Area 2012 Context 2024–2025 Context Implications
Metro 2040 Growth
Concept
Downtown LO designated
as Town Center; Foothills
recognized as its next
expansion area.
Town Center classification
continues and regional
emphasis on compact,
mixed-use locations has
strengthened.
Foothills should be framed
as a Town Center–supporting
district with higher-density
mixed-use redevelopment.
Metro RTP Supported connectivity,
mixed-use development, and
possible Streetcar.
Strengthened emphasis
on safety, climate, and
multimodal access; capacity
expansion discouraged.
Foothills alternatives must
emphasize mode shift,
multimodal enhancements,
and safety.
Climate-Friendly and
Equitable Communities,
(CFEC) State of Oregon
No equivalent program.Requires compact centers,
parking reductions, and VMT
reduction strategies.
Foothills is a likely candidate
for Climate-Friendly Area
designation.
96 ATTACHMENT 8/PAGE 96 OF 124
C. Parks Plan 2040
Policy Area 2012 Context 2024–2025 Context Implications
Parks Plan 2040 2012 plan promoted future
riverfront access and park
expansion. Parks system
lacked cohesive riverfront
strategy.
Prioritizes the Willamette
River as a central asset with
waterfront access, trail/
greenway connections, civic
spaces, and ecological/
floodplain restoration.
TCWTP replacement is
essential to expanding parks
and the greenway. Public
space must remain a central
element.
D. Housing Needs Analysis (HNA 2023) & Housing Production Strategy (HPS 2024)
Policy Area 2012 Context 2024–2025 Context Implications
Housing Needs Analysis
(HNA)
No citywide need analysis.Need for 1,968 units over 20
years; deficit in high-density/
MF housing.
The Foothills District is
expected to accommodate
a portion of Lake Oswego’s
long-term housing need,
including multifamily and
mixed-use housing
Housing Production
Strategy (HPS)
Not applicable.Requires land use tools
and incentives to increase
production.
Foothills can serve as pilot
for incentive zoning, parking
reform, and TIF-supported
development.
E. Transportation System Plan (2014 + Amendments)
Policy Area 2012 Context 2024–2025 Context Implications
Functional
Classifications
OR-43 arterial; Foothills Road
support street.
Same, but with enhanced
multimodal expectations.
Foothills must meet Goal 10,
Goal 12, and Goal 13 in more
formal and measurable ways.
Performance Standards Auto LOS in DKS Framework
Plan.
Multimodal performance
metrics per TPR 2022.
Alternatives must avoid
relying on auto capacity
expansion.
Projects 2012 Foothills Plan proposed
key connections.
TSP includes and reaffirms
many 2012 projects.
Must ensure Foothills
infrastructure aligns with
adopted TSP projects.
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F. Oregon Statewide Planning Rule
Policy Area 2012 Context 2024–2025 Context Implications
Statewide Planning
Goals
Supported mixed-use and
infill in centers; applied
predictably.
New integration with CFEC;
stronger requirements for
housing, transportation, and
climate.
Foothills must meet Goal 10,
Goal 12, and Goal 13 in more
formal and measurable ways.
Transportation Planning
Rule (TPR)
Relied on vehicle LOS/
capacity analysis; DKS 2012
analysis used V/C metrics.
2022 TPR/CFEC amendments
shift to multimodal and VMT-
based metrics.
Traffic analysis must use new
performance standards.
State Housing
Production
Requirements)
No HPS requirement.HPS required starting 2025
with strong emphasis on
affordable and diverse
housing.
Foothills must be able to
support significant housing
production.
G. Zoning/Development Code
Policy Area 2012 Context 2024–2025 Context Implications
Zoning (FMU*, EC, R-0,
PF, Industrial)
*FMU not adopted into
Development Code
Zoning was a major barrier:
• Low FAR (1.2) and low
heights (40–50’)
• 40% lot coverage
encouraged surface parking
• Industrial zoning
incompatible with mixed use
• High parking minimums
FMU zone adopted but not
designated on the Zoning
Map. Rezoning was intended
to occur on a parcel by parcel
basis with an approved
development agreement.
Inconsistencies remain:
• Industrial parcels still
present
• Heights/FAR modest
relative to Town Center
needs
• Parking reforms align with
CFEC
• PF zoning at WWTF site
remains
Zoning to be significantly
amended:
• Remove industrial
designations
• Increase heights, FAR, and
lot coverage to Town Center/
CFA levels
• Regulate form + transitions
with neighborhoods
Chpt. 50 Community
Development Code
Appendix G
In the 2012 update that
created the special-district
regulations for the Foothills
Mixed Use District, this
appendix was formally
adopted and added to the
Code.
The appendix provides
detailed design guidelines
that new development in the
Foothills District must follow.
The Plan Update will utilize
the Appendix G code outline
and assess each element and
identify potential refinements
related to an updated
development and framework
plan.
The Plan Update will provide
recommendations for
amendments to Appendix
G in accordance with a
revised development and
framework plan. These
recommendations will be
vetted in a Post-Plan Code
Amendments process
98 ATTACHMENT 8/PAGE 98 OF 124
H. Neighborhood Plans & Design Guidance
Policy Area 2012 Context 2024–2025 Context Implications
Old Town / Evergreen
/ First Addition /
Lakewood
Supported pedestrian scale
and compatibility.
Strengthened through Comp
Plan adoption.
Must ensure height
transitions, active streets,
and compatibility at edges.
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5.6 EDUCATION
Overview
This section summarizes the 2012 Foothills District
Framework Plan Education Appendix (Appendix
B-9) and describes how its findings inform the
Foothills District Plan Update. The focus is on (1)
how urban renewal and redevelopment affect Lake
Oswego School District (LOSD) finances, and (2)
how Foothills redevelopment could influence LOSD
enrollment and long-term district vitality.
A. 2012 Plan Findings: Appendix B-9
(Education)
1. Relationship between urban renewal and LOSD
funding
The 2012 education analysis began by explaining
how Oregon’s school funding model and urban
renewal framework interact:
• State equalization and permanent tax rate.
»The State School Fund distributes money to
districts primarily on a per-pupil basis, but
then reduces each district’s state allocation
by the amount of local property tax revenue it
receives.
»In the existing East End Redevelopment Area,
LOSD continues to receive taxes on the “frozen
base,” while the Lake Oswego Redevelopment
Agency (LORA) receives the tax increment.
»If LORA did not receive this increment and
LOSD received it instead, the State would
reduce LOSD’s State School Fund grant by
essentially the same amount.
»For the permanent tax rate, urban renewal in
the East End does not create a direct net loss to
LOSD but, it primarily shifts who receives the
increment (LORA vs. State School Fund) rather
than reducing LOSD’s overall resources.
• Local option levy effects.
»LOSD’s local option levy is subject to a state
“deduction limit” for how much local option
revenue can be counted before it is offset by
reductions in state support.
»When LOSD’s local option collections exceed the
state deduction limit, any additional local option
revenue (including what would otherwise
be collected from property inside an urban
renewal area) is effectively offset by reductions
in state funding.
»The memo notes that for six of the first eleven
years of the local option levy, the East End
Redevelopment Area had no financial impact on
LOSD revenues, because LOSD was already at
or above the deduction limit. In other years, the
impact was modest.
»Overall, the memo characterizes the local
option levy impacts as limited and episodic,
rather than a large, consistent revenue loss.
• Indirect, statewide effects.
»If there were no urban renewal area, the
additional local property tax revenue from Lake
Oswego would reduce the amount the State
needs to provide to LOSD, freeing those state
dollars to be reallocated elsewhere.
»Because LOSD receives only a small share of
total statewide funding, this effect is a small
indirect impact, not a major driver of LOSD’s
budget.
Key takeaway: The 2012 memo concludes that urban
renewal is not a major source of financial harm to
LOSD, and that the net effects on LOSD revenues
from the existing East End Redevelopment Area are
relatively small compared to the overall district
budget.
100 ATTACHMENT 8/PAGE 100 OF 124
2. Projected LOSD impacts of a new Foothills urban
renewal area
The memo also evaluated the likely revenue
implications if a new Foothills District urban renewal
area were created:
• Permanent rate.
»For the permanent school tax rate, the
analysis indicates LOSD would experience a
relatively small increase in revenues under
the then-current rules, rather than a loss, if
a new Foothills Urban Renewal Area were
established.
• Local option levy.
»The memo concludes that a new Foothills urban
renewal area would have no negative effect
on LOSD’s local option levy revenues, given
the way the state deduction limits and offsets
function.
»At the same time, the positive effect on the local
option levy is difficult to quantify because of
the complex and evolving state rules governing
local option collections and limits.
Key takeaway: The 2012 education analysis finds
that creating a Foothills urban renewal area is
unlikely to materially reduce LOSD revenues, and
may even provide a small net benefit, especially
when considered alongside other potential revenue
streams associated with redevelopment.
3. LOSD enrollment trends and the role of Foothills
redevelopment
The second component of the 2012 education
appendix (prepared by Williams/Dame & White)
focused on student population and district vitality:
• High educational performance, increasing fiscal
pressure.
»LOSD is described as a high-performing district,
with both high schools named “Silver Medal
Schools” by U.S. News & World Report and
all 13 schools receiving top ratings on Oregon
school report cards.
»At the same time, the share of the State budget
dedicated to K-12 education had been shrinking,
and LOSD’s funding had become more
constrained despite its strong performance.
• Enrollment decline and financial implications.
»From the late 1990s to the 2000s, LOSD
enrollment fell from over 7,000 students to
about 6,700, with the most pronounced declines
in elementary and middle school enrollment.
»The loss of roughly 452 students over the
decade was estimated to equate to about
$3.2 million per year in lost state per-student
funding (using an approximate $7,100 per
student allocation at the time).
»Modest recent upticks in enrollment suggested
a possible inflection point, but the underlying
challenge remained: long-term, small but
steady enrollment decline.
• Housing, demographics, and where Foothills fits.
»The memo, drawing on the FCS Group analysis,
notes that Lake Oswego tends to attract
younger small families (ages 25–44 with
children under 5) and older residents, but has
limited housing options suited to both groups.
»Foothills is identified as a key opportunity to
add new “missing” housing types—smaller units
that could:
°Provide downsizing options for seniors,
freeing up existing single-family homes for
new families with school-age children.
°Attract new young families directly into
Foothills through appropriately sized and
priced units.
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• Illustrative development and enrollment
potential.
»The memo lays out a hypothetical scenario for
Foothills build-out:
°Of 107 district acres, assume ~40 acres
remain for private redevelopment after
parks, infrastructure, and public uses.
°A representative 1-acre block with
ground-floor commercial and six floors of
residential could yield ~120 housing units
(roughly 120,000 square feet), or about 297
residents based on Lake Oswego’s average
household size.
°Replicating similar development on
multiple blocks could generate meaningful
numbers of new students for LOSD, both
directly (new families moving into Foothills)
and indirectly (seniors moving into
Foothills and freeing up larger homes).
Key takeaway: The 2012 appendix framed Foothills
not just as fiscally neutral for LOSD, but as a
potential strategy to reverse gradual enrollment
decline and strengthen the district long-term by
providing new housing options that appeal to both
seniors and young families.
4. Additional education-related revenue
opportunities
The 2012 analysis also highlighted specific revenue
tools that link redevelopment and school capital
funding:
• Construction Excise Tax (CET).
»LOSD’s CET applies a per-square-foot
charge on new residential and commercial
development to fund school capital needs.
»Using 2010–2011 CET rates, the memo
estimated that:
°A first phase of roughly ten mixed-use
residential buildings in Foothills could
generate over $1.2 million in CET revenue
for LOSD.
°A 5,000-square-foot commercial ground
floor in a typical block, at a rate of about
$0.53 per square foot, could generate
roughly $2,650 per block for LOSD.
»CET proceeds can be used for capital
improvements including land acquisition,
construction, and reconstruction.
Key takeaway: The memo underscores that well-
structured redevelopment can directly contribute
to LOSD capital funding through CET, alongside
indirect gains via enrollment and long-term
assessed value growth.
B. How the 2012 Analysis Relates to
the Foothills District Plan Update
The Plan Update is revisiting Foothills more
than a decade after the original Framework Plan.
The 2012 education analysis establishes several
principles that remain relevant:
1. Urban renewal and education finance must be
addressed together, not in isolation.
• The earlier memo confirms that, under Oregon’s
equalization system, urban renewal is not a
primary cause of LOSD funding challenges.
• For the Plan Update, this suggests that debates
about Foothills should focus less on “urban
renewal vs. schools” as a zero-sum trade-
off, and more on how redevelopment can be
structured to maximize net benefits to the
district.
2. Enrollment stability and growth are central to
LOSD’s long-term health.
• The 2012 appendix connected LOSD’s enrollment
decline directly to lost operating revenue and
potential school consolidations or program cuts.
• The Plan Update should therefore treat student
generation and household mix in Foothills as a
key performance measure, not just a side effect
of market demand.
102 ATTACHMENT 8/PAGE 102 OF 124
3. Housing program and phasing matter for LOSD.
• The 2012 analysis emphasized Foothills’ ability
to provide:
»Senior-oriented units, enabling aging
residents to stay in the community, and
»Family-friendly units, helping to stabilize or
grow enrollment.
• The Plan Update’s land use and housing
program should explicitly test unit mixes, sizes,
and price points against LOSD’s enrollment
and capacity considerations, updating the 2012
assumptions with current data.
4. Redevelopment can support LOSD capital
planning.
• CET revenue and long-term assessed value
growth give LOSD additional tools to address
facility modernization, capacity, and potential
boundary changes.
• The Plan Update should therefore coordinate
Foothills phasing and infrastructure investments
with LOSD’s current and planned capital
projects, exploring mutually beneficial timing
and potential partnership opportunities (e.g.,
safe routes, shared facilities, or joint-use open
space).
5. Policy, funding, and demographics have changed
since 2012.
• While the 2012 memo is still conceptually valid,
the Plan Update will need to refresh:
»Current LOSD enrollment trends and
projections.
»Updated State School Fund and local option
dynamics.
»Current CET rates and other school funding
tools.
»Recent housing and demographic shifts in
Lake Oswego and the region.
• This baseline reset will allow the Plan Update to
re-run the 2012 questions with 2024–2025 data,
ensuring that education-related conclusions
reflect today’s conditions.
C. Education Connection to Plan
Update
Through discussions with the Lake Oswego
School District (LOSD), assemble information
on the current status of the education system in
Lake Oswego to understand how redevelopment
efforts may impact LOSD’s enrollment and what
opportunities may exist for strengthening LOSD
through the redevelopment process.
The Plan Update can build on the foundation of the
2012 education appendix in several ways:
1. Reconfirm and update key questions framed in
2012.
Revisit and update the same core topics identified
in the 2012 “Next Steps” list, including:
• How Foothills housing types can attract young
families and seniors.
• The potential increase in student population
resulting from Foothills redevelopment.
• How an increased general population in Lake
Oswego could support LOSD’s long-term vitality.
• The effect of additional students within the
Urban Services Boundary on State per-student
funding.
• The potential CET revenue from Foothills
development.
• The broader property and income tax impacts
associated with a more vigorous local economy.
• Overall costs and benefits to LOSD from Foothills
redevelopment.
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Foothills Plan Considerations
1. Urban renewal’s direct fiscal impact on LOSD
is limited and manageable, but perceptions
of its impact remain important to address
transparently.
2. Foothills redevelopment is a key lever for
stabilizing and potentially growing LOSD
enrollment by providing targeted housing for
families and seniors.
3. Redevelopment can also generate capital
funding for LOSD via CET and long-term
property tax growth.
4. Update the 2012 analysis with current data,
institutional priorities, and community
expectations, and embed education outcomes
directly into Foothills land use, phasing, and
implementation strategies.
2. Deepen engagement with LOSD.
Collaboration with LOSD to:
• Validate current capacity and facility conditions
• Confirm how different Foothills development
scenarios would affect specific schools,
attendance areas, and transportation routes
• Identify opportunities for joint planning, such as
safe routes to schools, potential school-related
programming in Foothills, and shared community
facilities.
3. Integrate education more explicitly into the
Plan’s performance framework.
Guided by the 2012 findings, Task C.11 can help the
Plan Update:
• Treat student generation and LOSD fiscal
outcomes as formal evaluation criteria for land
use and phasing scenarios.
• Identify thresholds or triggers where additional
LOSD investment (e.g., classroom additions,
program expansion) becomes necessary and how
Foothills-generated revenues might contribute.
4. Translate analysis into actionable Plan policies.
Convert the 2012 conceptual insights into specific
policy language and implementation actions, such
as:
• Recommending ongoing data sharing and
coordination protocols between the City and
LOSD around enrollment and development
activity.
• Identifying priority education-related
investments in Foothills (safe routes, crossings,
transit, public spaces) that support students and
families.
• Defining how future urban renewal strategies,
CET revenues, or other tools could help fund
school-related capital needs tied to Foothills
growth.
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6ATTACHMENT 8/PAGE 106 OF 124
6ECONOMIC & MARKET OPPORTUNITIES
ATTACHMENT 8/PAGE 107 OF 124
ECONOMIC AND MARKET OPPORTUNITIES
A. Key trends include:
1. Population: 41,129 residents (2024), with
very slow projected growth (0.11% annually to
2045). Other notable Lake Oswego population
characteristics include:
• The population is less diverse than the broader
region: approximately 22% of residents identify as
persons of color, compared to approximately 32%
in the region.
• Residents tend to be homeowners: about 71%
of households in the city are owner-occupied, 10
percentage points greater than the regional share.
• A higher share of older adults: approximately 23%
of residents are 65 years or older compared to
16% in the region.
2. Housing Tenure: 71% owner-occupied
• Significant mismatch between home prices and
local workforce wages.
• Many of the people who work in Lake Oswego,
particularly service workers, do not earn enough
money to be able to buy or rent in the city.
Overview
The Foothills District sits between Downtown Lake
Oswego and the Willamette River, constrained by
steep topography, Highway 43, rail lines, and the
existing wastewater treatment facility.
ECOnorthwest’s assessment evaluates demographic
and economic trends, housing and retail market
conditions, developer insights, and funding
considerations that influence redevelopment
potential. Findings confirm long-term demand for
housing and selective retail, but also highlight the
need for clear public actions to reduce development
risk and unlock feasible early-phase projects.
6.1 MARKET CONTEXT
Lake Oswego is characterized by high incomes,
high education levels, low racial diversity, and slow
population growth relative to the Portland region.
Fig. 57: Income and Education
Fig. 58: Population and Households
108 ATTACHMENT 8/PAGE 108 OF 124
3. Employment:
• 22,000 primary jobs; over 90% of workers live
outside the city.
• 90 percent of Lake Oswego residents commute
outside the city for work; 30% of employed
residents work from home—significantly higher
than the Tri-County average of 22%.
4. Visitation Patterns: Foothills receives
substantially lower and more seasonal
visitation than the downtown core.
• Downtown consistently attracts higher
and more stable daily visitation, averaging
147,000 to 236,000 visits. This likely reflects
its established mix of retail, dining, and civic
destinations that draw local and regional
visitors year-round.
• The Foothills District sees much lower visitation,
averaging 32,000 to 72,000 daily visits, with
stronger seasonal swings. Peaks in mid-summer
(July 2023, July 2024, July 2025) are likely tied to
waterfront and park recreation during summer
months.
• Non-resident visits
make up most Foothills
activity, suggesting
it functions more
as a destination for
recreation than as a
mixed-use district with
steady day-to-day foot
traffic.
• Across both Foothills
and Downtown, about
35–40% of visits come
from within Lake
Oswego. Roughly 20%
originate in Portland, about 10% from West Linn,
and around 10% from Tualatin and Beaverton
combined.
These conditions create opportunities for new, well-
located multifamily housing and modestly scaled
neighborhood-serving retail.
Fig. 59: Employment by Sector
Fig. 60: Visitation Trends
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6.2 HOUSING MARKET
FINDINGS
Lake Oswego has one of the region’s highest housing
costs, creating significant affordability gaps that
impact local workers and older residents who wish
to downsize.
A. Key housing conditions:
• Single-family dominance: 63% of housing stock.
• High home values: Median sale price of ~$935,000.
• Strong multifamily demand: Rents average $2.38/
SF; limited supply near downtown.
• Vacancies: Stable at ~7–8% despite recent unit
deliveries.
• Affordability: Older apartments in Lake Oswego
are priced beyond what an average worker can
afford.
• Absorption: strong multifamily development
activity in the last decade. Since 2018,
approximately 1,000 new multifamily units have
come on the market across 8 properties.
Fig. 61: Single-Family Characteristics
Fig. 62: Multi-family Rent Per Square Foot Fig. 63: Multi-family Vacancy Rate
110 ATTACHMENT 8/PAGE 110 OF 124
B. Developer insights:
• Multifamily is feasible only
at high rents (> $3/SF)
unless flexible standards or
incentives reduce costs.
• Primary demand segments
include:
»Downsizing older adults
seeking proximity to amenities.
»Workforce households earning 80–120% AMI.
»Remote workers needing flexible unit layouts.
• Barriers include design complexity, unpredictable
permitting, and site conditions (access, utilities,
floodplain).
Fig. 64: Multi-family Housing Characteristics
Fig. 65: Housing Affordability
Fig. 66: Housing Need
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6.3 RETAIL MARKET
FINDINGS
Lake Oswego maintains high retail rents ($29.46/
SF) and very low vacancy (≈3–4%), driven by strong
local incomes and stable customer bases.
A. Opportunities:
• Small-format food, beverage, and service retail is
feasible if highly visible and easily accessed.
• The waterfront is the district’s strongest asset—
appropriate for limited destination dining with
outdoor seating.
• Hybrid commercial/live-work units could support
early activation without overbuilding.
B. Constraints:
• Retail should not lead redevelopment; success
depends on:
»Adequate nearby residential population,
»Walkability,
»Straightforward parking and circulation.
• Larger or poorly located retail spaces (e.g.,
Mercato Grove examples) risk long-term vacancy.
Fig. 67: Retail Rent Per Square Foot
Fig. 68: Retail Absorption
Fig. 69: Retail Vacancy Rate
112 ATTACHMENT 8/PAGE 112 OF 124
6.4 DEVELOPER ADVICE
TO THE CITY
Across interviews, developers were consistent about
what is needed for Foothills to succeed:
1. Predictability in design standards, approvals, and
staff interpretation.
2. Clear parking strategy before development—
structured parking does not pencil in early
phases.
3. Simple, efficient midrise buildings with repeatable
floorplates.
4. Resolution of infrastructure uncertainties,
particularly access, floodplain, utilities, and
TCWTP replacement.
5. Phased development beginning closest to
downtown and Foothills Park.
6. Limit retail to small, high-performing locations—
primarily along the waterfront.
6.5 FUNDING
CONSIDERATIONS
Redevelopment will require coordinated use of
multiple funding tools. Key themes include:
• Early funding gap: Major infrastructure—
particularly access, utilities, and floodplain
elevation—must occur before development, but
revenue from TIF/SDCs builds slowly.
• TIF: Useful over time but limited in early years
due to Oregon’s assessed value system.
• SDCs: Help fund growth-related improvements,
but collections are low until development
accelerates.
• Supplemental tools: State loans, reimbursement
districts, and LIDs may support phased
infrastructure, though each has constraints.
A blended approach—and early City investment—will
be essential.
Foothills Update Considerations
1. Reduce Regulatory Uncertainty
2. Establish clear zoning, design standards, and
streamlined approvals to support early private
investment.
3. Resolve Access and Parking Early
4. Clarify long-term access (including potential
future northern access)
5. Prioritize Early-Phase Housing Near Downtown
6. Focus on midrise multifamily with standardized
floorplates, serving downsizers, remote workers,
and 80–120% AMI households.
7. Locate Retail Strategically
8. Limit ground-floor retail to small, highly visible
locations—especially near the waterfront and
northern gateway.
9. Treat the Waterfront as a Signature Asset
10. Use the riverfront to anchor dining, recreation,
and public realm improvements while maintaining
view corridors and open space
11. Coordinate Infrastructure and TCWTP
Replacement
12. Use plant replacement to unlock redevelopment
parcels; plan early for utilities, floodplain mitigation,
and district-scale stormwater solutions.
13. Use Funding Tools in Combination
14. Expect early public investment and structure
a package of TIF, SDCs, state financing, and
reimbursement districts to sequence infrastructure
with development.
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7ATTACHMENT 8/PAGE 114 OF 124
7The following pages illustrate existing land uses
within the Central Talmadge study area and the
adjacent area. This existing condition includes
approved development plans that may not be realized
yet, namely the Southwest Crossing Subdivision.
OPPORTUNITIES & CONSTRAINTS
ATTACHMENT 8/PAGE 115 OF 124
OPPORTUNITIES AND CONSTRAINTS
Overview
The physical, environmental, and infrastructural
conditions of the Foothills District define both
significant challenges and unique opportunities
for future redevelopment. These factors shape
access, mobility, natural systems, development
feasibility, and long-term resilience. Together, these
elements frame where development can occur,
where protection or restoration is required, and
where strategic interventions—such as new access,
floodplain elevation, or public realm improvements—
can unlock new potential. The following sections
highlight core constraints, key opportunity areas, and
districtwide considerations that will shape future
design alternatives.
7.1 SITE CONSTRAINTS
A. Limited Access & Circulation
Barriers
• Foothills currently relies on a single
vehicular access point along State Street,
creating operational, emergency access, and
redevelopment constraints.
»A single access point serving all land uses.
»High traffic volumes along State Street (OR 43).
»Limited safe pedestrian and bicycle crossing
opportunities.
• The Union Pacific rail corridor further restricts
opportunities for safe, multimodal crossings, with
only two technically feasible locations for future
access. Significant challenges include:
»Required 23-foot vertical clearances for
overcrossings.
»Limited opportunities for undercrossings due to
shallow bedrock and groundwater.
»Long regulatory review timelines for any at-
grade crossing request.
»Safety and visibility requirements for pedestrian
and bicycle access.
Fig. 70: Single Access
Fig. 71: Railroad Barrier
116 ATTACHMENT 8/PAGE 116 OF 124
B. New Wastewater Treatment Facility
(WWTF) Impacts
• The replacement of the Tryon Creek Wastewater
Treatment Plant (TCWTP) alters long-standing
assumptions from the 2012 Framework Plan
requiring re-evaluation of the northern access
from State Street/HWY 43.
»The new WWTF site affects alignment of the
previously planned North Portal vehicular
connection.
»Large utility corridors and service areas require
protective buffers.
»Facility scale, massing, odor management, and
screening require design coordination.
C. Topographic & Slope Constraints
• Steep slopes (12–15%+) between the Downtown
plateau and riverfront limit street continuity, ADA
accessibility, emergency response, and feasible
grading approaches for future development.
• Strategic grading, retaining systems, and stair/
ramps or switchback paths will be required to
achieve safe and comfortable circulation.
Fig. 72: Waste Water Treatment Plant
Fig. 73: Steep Slopes
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D. Sensitive Lands, Buffers & Habitat
Protection
• Significant RP/RC resource areas, wetlands,
riparian corridors, and 170-foot Willamette River
Riparian Buffer Zones (RBZ) constrain where
redevelopment can occur.
• Additional Tryon Creek vegetated corridors and
construction setbacks, (25-foot vegetated corridor
and 10-foot construction setback) along Tryon
Creek to create a minimum 35-foot protected zone.
E. Floodplain & Resiliency Limitations
• Much of the District lies within the 1996 flood
extent and FEMA Special Flood Hazard Area,
requiring elevated development, balanced cut-and-
fill, and new hydraulic modeling. Ground floors
must meet the City’s Design Flood Elevation (37.2’
NGVD).
Fig. 74: Sensitive Lands
Fig. 75: Buffers Fig. 76: 1996 Flood
118 ATTACHMENT 8/PAGE 118 OF 124
F. Phasing & Infrastructure Capacity
Constraints
• Redevelopment sequencing remains tied
to stormwater, sanitary, lift station, and
utility upgrades, as well as property control.
Including:
»Undersized 24-inch stormwater and sanitary
mains.
»Pump station capacity limitations.
»Limited stormwater treatment facilities.
»Required replacement or underground
conversion of franchise utilities.
• Limited street visibility and retail demand also
affect early-phase feasibility.
7.2 SITE
OPPORTUNITIES
A. New North Access & Improved
Multimodal Network
• Expanded access—through a future D/E Avenue
North Portal or a Terwilliger-area multimodal
connection—offers the greatest opportunity to
unlock circulation, traffic distribution, emergency
access, and redevelopment capacity. Potential
benefits include:
»Increased emergency access reliability.
»Improved traffic distribution and reduced
congestion at Foothills Road.
»More direct connections to Downtown and
surrounding neighborhoods.
»Enhanced feasibility for mixed-use development.
Fig. 77: Potential Access
(DRAFT) LAKE OSWEGO FOOTHILLS | FIELD GUIDE – EXISTING CONDITIONS ANALYSIS | DECEMBER 24, 2025 | 119ATTACHMENT 8/PAGE 119 OF 124
B. Strategic Flood Elevation &
Development Readiness
• Previous studies demonstrate that raising building
pads above flood elevation can be achieved with no
measurable rise in river levels, enabling resilient
redevelopment while meeting FEMA and City
requirements. Including:
»Reduce flood risk across the district.
»Expand the variety and intensity of buildable land
uses.
»Support market viability by reducing perceived
risk.
»Create development platforms connected to
public spaces and streets.
C. Riverfront & Natural System
Enhancement
The District is uniquely positioned to integrate
ecological systems into its urban fabric. Opportunities
include:
• Restore riparian corridors
• Improve fish passage
• Integrate natural systems into parks and
development
• Create an identity anchored in ecological
stewardship
D. Foothills Park & Waterfront
Fig. 78: Fill & Reduced Flood Risk
Fig. 79: Natural System Integration
120 ATTACHMENT 8/PAGE 120 OF 124
Activation
Foothills Park, Roehr Park, Tryon Cove Park and
Natural Area, and the Kincaid Curlicue Corridor form
a significant collection of riverfront park assets.
Opportunities include:
• Expanding river access and creating new
opportunities for river-based recreation.
• Creating new waterfront plazas, overlooks, and
flexible event spaces.
• Improving ADA accessibility and circulation within
and between parks.
• Completing the Willamette Greenway Trail along
the riverfront.
• Integrating public spaces with future mixed-use
development.
E. Trails as District Defining Elements
A robust trail network enhances mobility, recreation,
and district identity while reducing auto dependence.
The district serves as a critical convergence point for
regional and local trail systems, including:
• Willamette Greenway Trail
• Tryon Creek Trail and Tryon Cove Crossing
• Kincaid Curlicue Corridor
• Potential future walk and bike corridors at A
Avenue and B Avenue, connecing to Downtown Lake
Oswego
Fig. 80: Waterfront Assets
Fig. 81: Interconnected Trail Network
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F. Water-Based Mobility & the Frog
Ferry Opportunity
Foothills Park is one of the only locations on the
Willamette River with an existing dock suitable for
adaptation to commercial passenger ferry service.
Potential benefits include:
• Establishing a new regional gateway to Lake
Oswego.
• Creating sustainable travel options to Portland and
Oregon City.
• Reinforcing Foothills’ identity as a riverfront
district.
• Supporting tourism, events, and waterfront
activation.
F. Mixed-Use Redevelopment Potential
The district can accommodate a mixed-use program
that responds to evolving community needs, including:
• A range of housing types and affordability levels.
• Employment and innovation spaces.
• River-oriented retail and dining.
• Cultural, recreational, and community-serving uses.
Fig. 82: Potential Water-Based Ferry (Frog Ferry)
122 ATTACHMENT 8/PAGE 122 OF 124
Foothills Update Considerations
1. Pursue a new northern access connection
(vehicular and/or multimodal) to reduce reliance
on the single State Street/Foothills Road
intersection and improve circulation, safety, and
redevelopment viability.
2. Integrate TCWTP replacement into district
planning, ensuring access, street network, and
redevelopment phasing are aligned with the new
facility’s footprint and timing.
3. Design with natural systems first, incorporating
riparian buffers, habitat restoration, wetland
protection, and green infrastructure into
development feasibility and the public realm.
4. Address flood resilience holistically, including
updated hydraulic modeling, cut-and-fill strategies,
and building elevation requirements.
5. Leverage Foothills Park and riverfront assets as
core organizing elements of the District—expanding
river access, recreation, and cultural activities.
6. Advance trail and multimodal connectivity,
including the Willamette Greenway Trail, Tryon
Creek crossing, regional trail links, and improved
pedestrian/bike access to State Street and
Downtown.
7. Plan for phased utility and infrastructure upgrades,
including stormwater, sanitary, lift stations, and
franchise utilities, to support realistic development
sequencing.
8. Promote a mixed-use, transit-supportive land
use pattern that aligns with Metro 2040, CFEC
requirements, and the City’s Housing Production
Strategy—prioritizing density near parks and
multimodal corridors.
9. Ensure Foothills functions as an extension of
Downtown, avoiding isolation through strong
vertical and horizontal connections, placemaking,
and active ground floors
10. Coordinate early with regulatory agencies (UPRR,
ODOT, DSL, DEQ, USACE, FEMA) to streamline
future permitting for crossings, floodplain work, and
environmental compliance.
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