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HomeMy WebLinkAboutOpportunities & Constraints Summary Paper & Maps 2025-12-24Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 1 of 22 December 24, 2025 Opportunities and Constraints Summary Paper To: City of Lake Oswego From: First Forty Feet – Urban Design & Planning Subject: Foothills District Framework Plan Update – Site Opportunities & Constraints Summary Date: December 24, 2025 Introduction This memorandum summarizes the key opportunities and constraints shaping the Lake Oswego Foothills District Framework Plan Update. The accompanying StoryMap and mapping analysis provides a high-level evaluation of physical, environmental, regulatory, and infrastructural factors that influence where and how development can occur within the District. Findings build upon the 2012 Foothills District Framework Plan and incorporate updated site investigations to establish a strategic foundation for guiding principles and concepts that will drive the plan update. The information below identifies the District’s primary strengths, weaknesses, and defining conditions, which together inform a balanced and sustainable approach to redevelopment. Supporting Data FIGURES Figure 1. Constraint-Access Figure 2. Constraint-Rail Figure 3. Constraint-WWTP Figure 4. Constraint-Steep Slopes Figure 5. Constraint-Sensitive Lands Figure 6. Constraint-Site Buffers Figure 7. Constraint-Flood Figure 8. Opportunity-Access Figure 9. Opportunity-Cut Fill Figure 10. Opportunity-Tree Canopy Figure 11. Opportunity-Natural Systems Figure 12. Opportunity-Water Connections Figure 13. Opportunity-Trails Figure 14. Opportunity-River Circulation ATTACHMENT 9/PAGE 1 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 2 of 22 Site Constraints 1. Breaking the Bottleneck: Opening the Foothills The Foothills District remains constrained by its single point of vehicular access—Foothills Road connecting to State Street. This issue was first identified in the 2012 Plan and continues to restrict circulation, emergency response, and overall connectivity. The limited access diminishes integration with surrounding neighborhoods and the downtown core, constraining both mobility and redevelopment potential. Addressing this bottleneck through additional access points, improved multimodal connections, or intersection enhancements will be fundamental to unlocking District capacity. Figure 1. Constraint-Access 2. Navigating the Rail Barrier to Connect the District The Union Pacific Railroad corridor presents significant challenges for establishing safe and functional vehicular, bicycle, and pedestrian connections. With the rail line positioned above or below State Street, feasible crossing options are limited to the Public Storage location and the State Street/Terwilliger Boulevard intersection. Union Pacific’s required 23-foot vertical clearance for overpasses increases costs and design complexity. Pedestrian and bicycle overcrossings or undercrossings must address visibility, safety, and comfort. Early, coordinated planning with UPRR and transportation agencies will be necessary to ensure any new crossing meets regulatory, operational, and design requirements. Figure 2. Constraint-Rail 3. A New Facility, New Constraints, New Opportunities The relocation of the Tryon Creek Wastewater Treatment Facility introduces new constraints and opportunities within the Foothills District. Its proposed site interrupts the northern vehicular connection previously envisioned in the 2012 Plan, reinforcing the urgent need for an alternative access point. While the facility’s new location may offer operational benefits, it also presents challenges related to development value, scale, visual and aesthetic impacts, odor control, and buffering needs. These elements must be further evaluated to balance infrastructure functionality with District redevelopment goals. Figure 3. Constraint-WWTP 4. Addressing Topography to Improve Connectivity Foothills’ steep topography is a defining constraint for access and mobility. Slopes exceeding 12–15% create barriers for street connections, trail design, and emergency response. Even slopes over 5% affect ADA accessibility and increase construction complexity. These conditions require careful consideration of grading strategies, retaining systems, switchback paths, and multimodal route alignment to ensure safe and accessible connections between downtown, the Foothills District, and the riverfront. Figure 4. Constraint-Steep Slopes Figure 4. Constraint-Steep Slopes ATTACHMENT 9/PAGE 2 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 3 of 22 5. Where Nature Leads: Planning Around Sensitive Lands The District contains significant Resource Protected (RP) and Resource Conservation (RC) areas, wetlands, and riparian corridors that limit where development can occur. Regulatory protections restrict grading, clearing, or construction within these areas to preserve ecological function, wildlife habitat, and water quality. These natural systems require buffer zones and ecological corridors that define non- developable areas and reinforce the District’s environmental identity. Figure 5. Constraint- Sensitive Lands 6. Defining Development Boundaries Through Environmental Buffers Environmental setbacks further shape the edges of development opportunity. These buffers, as mapped in the natural resource inventory, reinforce ecological protection and delineate land available for redevelopment. They serve as a framework for responsible land-use planning, guiding District character and open-space connectivity. Figure 6. Constraint-Site Buffers Riparian Buffer Zone (RBZ) The Riparian Buffer Zone establishes a 170-foot horizontal offset measured from the Ordinary High Water (OHW) line of both the Willamette River and Tryon Creek. This standard follows the applicable Biological Opinion, which defines the RBZ boundary as: “The outer boundary of the riparian buffer zone is measured from the OHW of a freshwater body to 170 feet horizontally on each side of the stream.” This buffer significantly influences the location of developable land and is a primary ecological protection requirement. Vegetated Corridor and Construction Setbacks Additional buffers apply along Tryon Creek to preserve stream function and riparian habitat: •A 25-foot vegetated corridor is required landward of the break in slope, as defined by LOC 50.05.010.6.b.iv. •An additional 10-foot construction setback applies landward of the vegetated corridor. •These zones, shown in the "Buffer-Construction-10ft" and "Buffer-25ft" references, further restrict grading, construction, and disturbance within sensitive areas. Together, these buffers establish a minimum 35-foot protected zone from the creek edge. ATTACHMENT 9/PAGE 3 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 4 of 22 7. Flood Risk and Development Limitations Historic flooding—most notably the 1996 event—continues to influence development feasibility. Floodplain regulations limit the placement of buildings, utilities, and transportation infrastructure within inundation areas. Future development must incorporate flood elevation considerations, stormwater management, and broader resilience measures, including compliance with FEMA standards. These requirements add design complexity but provide an opportunity to create a more resilient, adaptive District. Figure 7. Constraint-Flood Ordinary High Water (OHW) Levels Current planning will reference updated and confirmed OHW elevations: •Willamette River OHW: 24.65 ft NAVD88 (21.15 ft NGVD). Prior delineations will be used, with confirmation pending. •The low water line is planned for removal from mapping and analysis as it is no longer relevant. •For Tryon Creek, OHW was digitized based on the 2017 concurred wetland delineation (“2017_TryonCreek”), prepared by Apex’s Natural Resources team. 8.Phased Development & Infrastructure Delivery The district continues to face foundational delivery constraints such as: •The need for phased development is tied to infrastructure delivery. •Property ownership and current on-site profitable businesses. •Limited visibility and access from State Street, affecting early-stage commercial viability. •Competition with established retail areas downtown and along major corridors. These constraints suggest that non-residential uses will need to be supported by strong placemaking, trail connectivity, waterfront amenities, and sufficient residential density to create a sustainable customer base. 9.Isolation & Disconnect A persistent constraint is the potential for Foothills to develop as a standalone district disconnected from downtown due to topography, State Street traffic volumes, and limited crossing opportunities. ATTACHMENT 9/PAGE 4 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 5 of 22 Without intentional design and programming, Foothills could become visually and functionally separated from the civic and commercial core, reducing its ability to reinforce downtown vibrancy and economic health. Site Opportunities 1. Build a Connected and Accessible Network Expanding access beyond a single entry offers one of the District’s greatest opportunities. Establishing a secondary access point would improve circulation, reduce congestion, and significantly enhance development viability. Potential new connections include the Public Storage rail crossing and the State Street/Terwilliger Boulevard intersection. Improved access reduces regulatory risk and increases marketability, making the Foothills District more attractive for public and private investment. Figure 8. Opportunity-Access 2. Elevating Opportunity: Protecting the District’s Future Strategic floodplain elevation is essential to protecting infrastructure, expanding development potential, and improving long-term resilience. The 2012 floodplain study determined that placing approximately 75,000 cubic yards of fill could achieve a “no-rise” condition while enabling safe, market-ready development. Elevating building pads, streets, and utilities above the Base Flood Elevation strengthens developer confidence and aligns with City and FEMA standards. The success of the Oswego Pointe Condominium site provides a strong precedent for this approach. Figure 9. Opportunity-Cut Fill 3. Expanding the Tree Canopy as a Defining Asset The Foothills District offers an opportunity to create a signature urban forest identity. Enhancing and expanding the tree canopy can improve environmental performance, reduce heat islands, support biodiversity, and enrich the pedestrian experience. A cohesive canopy network strengthens connections to the Willamette River and Tryon Creek, reinforcing the District’s role as a resilient, ecologically integrated community. Figure 10. Opportunity-Tree Canopy 4. Enhance Ecological Connectivity and Natural Systems Building on the District’s natural resources, the plan can restore riparian habitats, improve fish passage at Highway 43, and strengthen biodiversity throughout the corridor. Aligning development with natural systems offers an integrated approach that supports ecological health while creating identity-rich public spaces. ATTACHMENT 9/PAGE 5 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 6 of 22 This strategy furthers the Framework Plan’s vision of connecting downtown, the river, and the surrounding landscape. Figure 11. Opportunity-Natural Systems 5. Reimagining Foothills Park as a Riverfront Destination Foothills Park holds tremendous potential as a premier riverfront destination. Expanded access to the water, new recreational amenities, improved circulation, and ADA upgrades will enhance its role as a regional destination. Planned expansion under Parks Plan 2040 further elevates its potential as a cultural, recreational, and ecological anchor for the District. Strengthening physical and visual connections between the park and the riverfront will help redefine Lake Oswego’s relationship with the Willamette River. Figure 12. Opportunity-Water Connections 6. Trails at the Heart of Foothills’ Identity Extending and integrating trail networks—including the Willamette Greenway Trail and Tryon Creek linkages—creates opportunities for active mobility, regional recreation, and community connectivity. A well-connected trail system positions the Foothills District as a place where movement, nature, and community converge. Figure 13. Opportunity-Trails 7. Arriving by Water: A New Gateway to Foothills The potential Frog Ferry service offers a unique opportunity to reconnect Lake Oswego to the Willamette River through sustainable, river-based mobility. Arriving at Foothills Park by water would create a memorable gateway experience and reinforce Lake Oswego’s identity as a vibrant river town. Figure 14. Opportunity-River Circulation This connection highlights the District’s role within a larger regional river network and celebrates Lake Oswego’s cultural and historical relationship with the water. The district’s riverfront location and future amenities—including Foothills Park expansion, the Willamette Greenway Trail, and potential Frog Ferry service—position Foothills as a future destination for events, recreation, arts, and cultural life. Opportunities include: •Establishing a year-round event and activity hub in the riverfront open space network. •Leveraging proximity to downtown to support shared commercial uses and increase evening and weekend activity. •Designing ground-floor retail, community spaces, and flexible programming to enhance the district’s visibility and vibrancy. 8. Diverse & Flexible Mix of Land Uses Foothills presents an opportunity to introduce a balanced, future-ready mix of residential typologies, employment, cultural, and recreational uses. Building upon the district’s natural amenities and riverfront proximity, land use opportunities include: ATTACHMENT 9/PAGE 6 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 7 of 22 •Distinctive subdistricts, each with their own character, intensities, and development patterns. •Strategic siting of higher-density residential or mixed-use buildings near trail connections, and the river. •Opportunities to incorporate affordable, workforce, and senior housing, expanding housing choice and supporting broader community goals. Conclusion The Foothills District presents a rare combination of constraints to be addressed and opportunities to be leveraged. While physical, environmental, and infrastructural limitations shape where development can occur, they also guide a more resilient, sustainable, and connected approach to urban design. Together, these findings establish a strategic foundation for the Foothills Framework Plan Update—supporting a vision for a vibrant, accessible, climate-ready, and ecologically integrated riverfront District that strengthens Lake Oswego’s connection to its natural and urban contexts. ATTACHMENT 9/PAGE 7 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 8 of 22 Figures Figure 1. Constraint-Access ATTACHMENT 9/PAGE 8 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 9 of 22 Figure 2. Constraint-Rail ATTACHMENT 9/PAGE 9 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 10 of 22 Figure 3. Constraint-WWTP ATTACHMENT 9/PAGE 10 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 11 of 22 Figure 4. Constraint-Steep Slopes ATTACHMENT 9/PAGE 11 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 12 of 22 Figure 5. Constraint-Sensitive Lands ATTACHMENT 9/PAGE 12 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 13 of 22 Figure 6. Constraint-Site Buffers ATTACHMENT 9/PAGE 13 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 14 of 22 Figure 7. Constraint-Flood ATTACHMENT 9/PAGE 14 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 15 of 22 Figure 8. Opportunity-Access ATTACHMENT 9/PAGE 15 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 16 of 22 Figure 9. Opportunity-Cut Fill ATTACHMENT 9/PAGE 16 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 17 of 22 Figure 10. Opportunity-Tree Canopy ATTACHMENT 9/PAGE 17 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 18 of 22 Figure 11. Opportunity-Natural Systems ATTACHMENT 9/PAGE 18 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 19 of 22 Figure 12. Opportunity-Water Connections ATTACHMENT 9/PAGE 19 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 20 of 22 Figure 13. Opportunity-Trails ATTACHMENT 9/PAGE 20 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 21 of 22 Figure 14. Opportunity-River Circulation ATTACHMENT 9/PAGE 21 OF 22 Architecture Urban Design Planning 812 SW Washington St Suite 250 Portland, Oregon 97205 t: 503-764-9692 www.firstfortyfeet.com Lake Oswego Foothills Framework Update | Opportunities & Constraints Summary Paper page 22 of 22 ATTACHMENT 9/PAGE 22 OF 22